Home Programs National security Air India review Lessons to be learned: The report of the Honourable Bob Rae 3. What occurred

3. What occurred

In setting the context for these tragic events, it is important to understand trends underway in Canada and India. The Sikh community had established itself in Canada at the turn of the last century, but remained relatively small and stable. Changes in immigration policy in 1967 opened the door to a large increase in Sikh emigration from India, with the focus of that growth in the lower mainland of British Columbia and southern Ontario. Politics in India and the Punjab in the 1960’s and 1970’s were volatile. The demand for political independence for a separate Sikh based territory in the Punjab had for some years been accompanied by violence. The raid by the Indian government on the Golden Temple in Amritsar, Sikhism’s holiest site, in June, 1984 and the subsequent assassination of Prime Minister Indira Gandhi by her Sikh bodyguards in November of that same year had dramatically radicalized Sikh activism in India and around the world. The movement for secession of the Punjab was supported by sections of the Sikh community in the US, the UK, Germany and Canada, and there were continuing allegations that money, arms and false passports flowed from Sikh extremists in these countries to India. Prior to the bombing of Air India Flight 182 there were a number of incidents of violence in Canada, including the attack on the acting Indian High Commissioner, as well as threats of violence on other Indian representatives in Canada.

The growth of Sikh radicalism also had a domestic, Canadian flavour. Like many religions, its adherents practiced their faith in different ways. A fundamentalist insistence on a return to the “pure practice” of Sikhism took hold as lively, and often violent, debates unfolded in gurdwaras in urban centres like Toronto and Vancouver between competing elements in the community. The words “Babbar Khalsa”, the name of the organization in India and Canada that was at the heart of radical extremism in the Sikh community, means Tigers of the True Faith. The key elements of this faith were strict Sikh religious practice and an unwavering commitment to an independent Khalistan, to which must be added a ruthlessness about how these goals would be achieved.

According to information provided to me by Foreign Affairs Canada, the department received many warnings of possible terrorist actions against Indian interests in Canada during this period. This threat information was shared with CSIS and the RCMP. The department’s security intelligence bureau held consultations in mid-May 1985 with Canada’s mission in Delhi on the Sikh terrorist threat in Canada and India. In addition an inter-departmental committee on Sikh terrorism was established May 17th, 1985, for the purpose of better tracking and sharing of information on activities in Canada. The task force consisted of representatives of the Department of Foreign Affairs, the RCMP, CSIS and the Solicitor General, and met a number of times prior to June 23, 1985.

In his March 2005 judgment, Justice Josephson of the British Columbia Supreme Court concluded that one of the leaders of the conspiracy was Talwinder Singh Parmar.¹ Mr. Parmar came to Canada in May 1970, and became actively involved in Sikh political and religious movements as a young man. He returned to India years later and was allegedly involved in a number of violent confrontations with Indian authorities. After spending a year in custody in Germany, Mr. Parmar returned to Canada in the summer of 1984. He was described as a dangerous and violent political activist by the Indian government, and Canada received a request for his extradition on murder charges from the Indian government. This request was denied, but Mr. Parmar remained a person of interest to Canadian authorities from the time of his return to Canada, and during his trips back and forth between India and Canada. Indian police authorities in India killed Mr. Parmar on October 14, 1992.

According to the SIRC report of November 16, 1992, the first threat assessment by CSIS of Sikh political activism in Canada was made on May 1, 1984.

A warrant under the CSIS Act to intercept communications on Mr. Parmar was sought in the Federal Court and granted commencing March 14, 1985. This included the wiretapping of Mr. Parmar’s phone. The first telephone intercept started on March 27, 1985. Surveillance on Mr. Parmar began as early as 1982, with agents being sent to follow his movements.

By his own admission, another individual, Inderjit Singh Reyat, was instrumental in the construction of the bomb that would be placed on Canadian Pacific Flight 060 heading to Toronto and later transferred to Canadian Pacific Flight 003 heading to Narita airport in Japan on June 22, 1985. Mr. Reyat also plead guilty to manslaughter in aiding and abetting in the construction of an explosive device placed onboard Air India Flight 182. Mr. Reyat is currently serving his sentence for manslaughter in British Columbia in connection with the construction of these two bombs. Mr. Reyat has refused to name any other conspirators, which led Justice Josephson to say the following about him:

Mr. Reyat’s involvement with the procurement of parts and the development of bombs used in the conspiracy to blow up Air India planes is not at issue in these proceedings. He has been convicted of offences in relation to both bombings.

Mr. Reyat’s credibility on the witness stand is also of little moment in relation to the outcome of this trial. That said, it is without hesitation that I find him to be an unmitigated liar under oath. Mr. Reyat endeavored to reveal as little information as possible regarding the complicity of himself and others in the offences, while attempting unsuccessfully to craft a story consistent with his plea to manslaughter and his admissions of fact in that connection.

Much of his evidence was improbable in the extreme and entirely inconsistent with common sense. When caught in obvious and numerous irrationalities, he would seek refuge in memory loss or offer tentative possibilities or guesses.

The most sympathetic of listeners could only conclude, as do I, that his evidence was patently and pathetically fabricated in an attempt to minimize his involvement in his crime to an extreme degree, while refusing to reveal relevant information he clearly possesses. His hollow expression of remorse must have been a bitter pill for the families of the victims. If he harboured even the slightest degree of genuine remorse, he would have been more forthcoming.²

Messrs. Reyat, Parmar and others were involved in the building of at least two bombs and they tested a device while under surveillance by members of CSIS on June 4, 1985. No photograph was taken of suspects heading into the woods to test the device, and when an explosion took place, CSIS agents mistakenly believed that it was the sound of a rifle. There are differing accounts from the RCMP and CSIS as to the level of co-operation between the two services with respect to the surveillance of Mr. Parmar and his associates on that day.

On June 20, 1985, airline reservations were made for two people on two Canadian Pacific Airline flights, one for Canadian Pacific Air Flight 060 from Vancouver to Toronto and connecting Air India Flight 181/182, and the other for Canadian Pacific Flight 003 departing Vancouver for Narita airport in Japan with a connecting flight from Narita airport to Bangkok on Air India Flight 301. Although the phone number from which the phone call was made is known, the identity of the individuals who made the reservations is not; nor is it known who took the suitcases containing the bombs to the airport. What is known is that, pursuant to a commonly agreed plan, someone drove to the airport, identifying himself as passenger M. Singh, and brought with him a suitcase containing a home made bomb that would later explode and kill all the individuals aboard Air India Flight 182.

The Vancouver airport was busy that day, and the owner of the suitcase was told that he was confirmed on Canadian Pacific 060 to Toronto but remained waitlisted for Air India Flight 181 (Toronto to Montreal) and Air India Flight 182 (Montreal to Delhi). The recollection of the agent at the time, Jeanne Bakermans, was that the individual was insistent his bag should be checked all the way through from (interlined) Vancouver to Air India Flight 182. Airline rules in place at the time provided that passengers and their luggage should be checked together. Baggage should not have traveled without accompanying passengers. There was no reconciliation check between records of bags and passengers before the flight took off.

It would also appear that, while special precautions were recommended for Air India flights — for example, there was additional RCMP surveillance at the Toronto Airport - the same could not be said of connecting flights. It is important to remember that the bag was originally placed not on an Air India flight but on a Canadian Pacific flight leaving Vancouver for Toronto.

Prior to June 23, 1985, the emphasis in Canada (and internationally) was on the threat of hijacking; screening procedures focused on the prevention of the boarding of weapons, including guns and other explosive devices in hand luggage.

On May 17, 1985, the High Commission of India presented a diplomatic note to the Department of External Affairs regarding the threat to Indian diplomatic missions or Air India aircraft by extremist elements. Subsequently, in early June, Air India forwarded a request for “full and strict security coverage and any other appropriate security measures” to Transport Canada offices in Ottawa, Montreal and Toronto and to RCMP offices in Montreal and Toronto.

I have, to this point, been unable to find any specific threat with respect to Air India Flight 182 on June 22/23, 1985.

Under the procedures established by Air India, passengers, carry-on baggage and checked baggage destined for Air India Flight 181/182 on June 22, 1985 were subjected to extra security checks. Because of the threat level assessed against the airline, Air India had more extensive security measures than almost any other Canadian or international airline. These measures were generally in accordance with the recommended procedures of the International Civil Aviation Organization (ICAO) Security Manual for special risk flights.

Air India had also requested and received extra security from Transport Canada and the RCMP for the month of June 1985. For Air India Flight 181/182, Air India provided a security officer from its New York office to oversee the security arrangements at Toronto and Mirabel. The security program at each airport was under the overall supervision of the respective Air India station managers.

From June 16, 1984 to June 22, 1985, as a result of escalating violence in India, the security measures for Air India were increased to level four. These new measures included: increased RCMP surveillance of the Air India aircraft on apron area; RCMP monitoring of the Air India arrival, departure and ticket counter area; RCMP supervisor liaison with the Air India representative regarding security operations prior to the arrival or departure of the aircraft; and the RCMP Dog Master checking any reported suspect luggage or package and searching the passenger section of the Air India aircraft before departure.

On June 22, 1985, Canadian Pacific was not under any specific threat and, therefore, normal passenger screening was carried out without additional procedures.

For all Canadian airlines, Canadian regulations before June 23, 1985, required a system of identification that prevented baggage, goods and cargo from being placed on board an aircraft if it were not authorized to be placed on board by the airline operator. However, if someone were to purchase a ticket, check their baggage and not board the aircraft, the baggage would in all likelihood have been authorized by the airline to be placed on board the aircraft. Therefore, it was possible to send baggage from one flight to be transferred to another unaccompanied by a passenger. This explains how a suitcase was interlined to Air India Flight 181/182 from Canadian Pacific 060. It was not the normal practice of airlines to interline baggage if there was not a confirmed reservation to the destination. In this case, the ticket agent in Vancouver allowed the suitcase to proceed.

The following security measures were in place at Vancouver International Airport on June 22, 1985. Airport security and policing staff were on-site. Airport security plans and procedures were in place, including coordination of both normal and emergency operation. However, according to information provided to me by Transport Canada, checked baggage was not searched, and Canadian Pacific did not conduct a head count of the passengers on board the aircraft prior to departure.

As a result, a suitcase with a bomb in it made its way onto Canadian Pacific Flight 060 from Vancouver to Toronto, ready to be transferred to Air India Flight 181/182.

In Toronto, Air India aircraft and passengers were handled by Air Canada at Toronto’s Pearson International Airport (Terminal II). An RCMP officer, located in the area, monitored activities relating to the Air India aircraft. Air India passengers proceeded through the regular passenger screening checkpoint at the international departure area, and continued to a cordoned off holding area within the sterile area.

Normally all checked baggage for Air India flights was checked by an x-ray security system, which was acquired by Air India in January 1985. This unit, which was designed to handle large packages and luggage, was operated by three Burns Security personnel and was situated in the baggage make-up area of Terminal II.

Baggage to be transferred to the Air India flight arrived in Toronto on various domestic flights and was delivered to the international baggage area for x-ray examination and tagging. Domestic baggage was then placed in a container that was subsequently sealed
and placed on board the aircraft. An additional security guard was also posted
at the in-transit luggage belt in Terminal II to prevent unauthorized luggage from being placed on this belt.

Baggage screening for the Air India flight on June 22, 1985 commenced at approximately 2:30 p.m. local time. At 4:45 p.m. the x-ray unit became unserviceable. At that time, approximately 50–75% of the luggage had been screened. The Air India security officer supervising the baggage examination authorized the screening personnel to use a hand-held explosive vapour and trace detector (the PD4C Sniffer) to screen the remaining baggage. The Burns security personnel did this after a briefing on its operation by the Air India security officer and the baggage check was completed at 6:06 p.m. No luggage had been physically opened and searched. The x-ray devices and the PD4C Sniffer devices used to screen Air India passengers’ checked baggage was acquired by Air India.

According to Transport Canada, earlier on January 21, 1985, airport security personnel, Air India personnel, the RCMP and the Peel Regional Explosives Detection unit met to evaluate the Air India security program. The RCMP Dog Master and the representative from the Peel Regional Explosives Detection unit expressed their opinion that the PD4C Sniffer was ineffective. It is also not known if the PD4C Sniffer that was used on June 22, 1985, was the same PD4C Sniffer that was evaluated at the January 1985 meeting.

It is not known if the suitcase interlined from Canadian Pacific Flight 060 on June 22, 1985 to Air India Flight 181/182 was screened before or after the x-ray machine broke down in Toronto. A PD4C Sniffer screened baggage not examined by x-ray. There are indications that the PD4C Sniffer could have been ineffective in detecting explosives, especially plastics. Rather than using the PD4C Sniffer, it would have been more effective to open all bags and physically inspect them. It would appear that this was not done.

Despite the precautions and protections that were supposed to be in place, almost everything that could have gone wrong did go wrong. The bags should never have been checked without an accompanying passenger in Vancouver. Canadian Pacific Flights 060 (Vancouver to Toronto) and 003 (Vancouver to Narita) should not have taken off without a reconciliation that would have shown no accompanying passenger for these bags aboard either flight. When the bag arrived in Toronto from Canadian Pacific Flight 060 it should not have been transferred to the Air India plane without being checked and a bag reconciliation taken.

However, the suitcase with the bomb did get through 2 airports, both in Vancouver and Toronto. The mid-air explosion off the west coast of Ireland in the early morning of June 23, 1985, was the consequence.

Nothing of this dimension had ever occurred before to Canadian citizens in peacetime. The Canadian Embassy in Dublin was small and had very limited resources. Communication before the age of the cell-phone and the hand-held wireless device was poor. While Canadian officials from Ottawa, Dublin, and elsewhere, under the leadership of Canada’s Ambassador to Spain, Daniel Molgat, went to Cork to help families cope with the tragedy, it is clear that as a country we were simply ill equipped to deal with the full dimension of the disaster. I have spent some time discussing these efforts with both Canadian officials and the families. The latter feel deeply that their diverse needs were simply unmet. For their part, Canadian officials point to the long days and nights attempting to respond to the disaster, and the weight of a horrendous crime scene that they still carry with them.

Since that time, the Canadian Department of Foreign Affairs has set up an around the clock operations centre in Ottawa that can be brought together on short notice, answer questions from Canadians, and co-ordinate relief and consular efforts to help families in distress. It has been put to use to considerable effect during the tsunami relief effort and other issues affecting Canadians overseas, and is an incomparable improvement to what was available in 1985, when one duty officer would be on call at off-duty hours to muster a response. There are standing operating procedures for officers in Canada and abroad on measures to be taken to respond to a consular or other crisis.

A deeper analysis of both the experience of families and the official response is required, to ensure that lessons have been truly learned.