The Supreme Court v the Rule of Law

In ruling against Trinity Western’s fundamentalist law school, the Supreme Court unleashes the administrative state

The Supreme Court’s decisions in Law Society of British Columbia v. Trinity Western University, 2018 SCC 32 and Trinity Western University v. Law Society of Upper Canada, 2018 SCC 33 are a disaster for Canadian law. By a 7-2 majority, the Court upheld the decision of the Law Societies to deny accreditation to a concededly academically adequate law school on the sole ground that its students and faculty would have been required to sign up to a religiously-inspired “Covenant” and, inter alia, promise to abstain from sex outside of a heterosexual marriage for the duration of their studies ― a requirement that disproportionately affects gay and lesbian students and was therefore widely regarded as discriminatory, though it was not illegal under applicable anti-discrimination law. The Supreme Court’s decision and reasoning subvert the Rule of Law and nullify the constitutional protection for religious freedom.

The Trinity Western cases presented two sets of issues. First, there was the administrative law questions of whether the law societies were even entitled to consider  the “Covenant” in deciding whether to accredit it and, in the British Columbia case, whether a referendum of the law society’s members was an appropriate way of deciding whether to accredit Trinity Western. (The British Columbia decision is the one where the reasoning of all the judges is set out in full, and that’s the one I will refer to below, unless otherwise specified.) Second, there were the constitutional law questions of the framework to apply to review of the compliance of administrative decisions with the Canadian Charter of Rights and Freedoms and, substantively, of whether the law societies’ decision infringed the Charter and whether this infringement was justified. In this post, I focus on the administrative law issues, and add a few words on the applicable review framework. I will write about the religious freedom issues separately.

On the issue of the law societies’ entitlement to consider the covenant, as on the outcome, the Court splits 7-2. The majority reasons are ostensibly jointly authored by Justices Abella, Moldaver, Karakatsanis, Wagner, and Gascon; the Chief Justice and Justice Rowe concur. They hold that the law societies were within their rights to deny accreditation to Trinity Western based on the “Covenant”. Justices Brown and Côté jointly dissent. The majority holds that the referendum was a permissible procedure for deciding on the Trinity Western accreditation. Justice Rowe disagrees, although his comment on this point is in obiter. The dissent also thinks the referendum procedure was not appropriate. As for the review framework, the majority purports to apply the one set out Doré v Barreau du Québec, 2012 SCC 12, [2012] 1 SCR 395 and (modified in) Loyola High School v Quebec (Attorney General), 2015 SCC 12, [2015] 1 SCR 613. The Chief Justice and Justice Rowe, however, propose substantial modifications of this  framework, while the dissenters call for it to be reconsidered.

* * *

The majority (with the agreement of the Chief Justice and Justice Rowe) considers that the law societies had the power to consider Trinity Western’s “Covenant” and its discriminatory effects because of their alleged statutory mandate to regulate the legal profession “in the public interest”. The British Columbia legislation, for instance, provides that “[i]t is the object and duty of the society to uphold and protect the public interest in the administration of justice by”, among other things, “preserving and protecting the rights and freedoms of all persons”. This “overarching statutory object … is stated in the broadest possible terms”, [33] and the majority decides that in upholding the public interest and rights and freedoms the law societies were entitled to take into account “inequitable barriers on entry to the school” [39] created by the “Covenant”, as well as unspecified “potential harm to the LGBTQ community”. [44] Moreover, the majority thinks that since the “shared values” of the Canadian Charter of Rights and Freedoms “are accepted principles of constitutional interpretation”, [41]

it should be beyond dispute that administrative bodies other than human rights tribunals may consider fundamental shared values, such as equality, when making decisions within their sphere of authority — and may look to instruments such as the Charter or human rights legislation as sources of these values, even when not directly applying these instruments. [46]

To be sure, since neither law society provided reasons for its decision, it is not quite clear whether the decisions were actually made on this basis. But, since the Supreme Court has for some time now insisted that reasons that could have been given by administrative decision-maker can support its decision just as well as those that actually were, this is of no consequence.

The dissenters beg to differ. Constitutional values are irrelevant “to the interpretation of the [law society]’s statutory mandate,” and “it is [its] enabling statute, and not ‘shared values’, which delimits [law society’s] sphere of authority”. [270] That statute allows the law society to regulate itself, “‘lawyers, law firms, articled students and applicants’ [but]does not extend to the governance of law schools, which lie outside its statutory authority”. [273] As a result, the effects of the “Covenant” on which the majority relies are irrelevant considerations; in trying to forestall them, a law society acts for an improper purpose, since ― as Justice Rand famously observed in Roncarelli v Duplessis, [1959] SCR 121 ―,

there is no such thing as absolute and untrammelled “discretion”, that is that action can be taken on any ground or for any reason that can be suggested to the mind of the administrator; … there is always a perspective within which a statute is intended to operate; and any clear departure from its lines or objects is just as objectionable as fraud or corruption (140; cited at [275]; emphasis Brown and Côté JJ’s)

The perspective in which the law societies’ enabling statutes are intended to operate is a focus on the fitness of individual lawyers for legal practice, and denying accreditation to a law school whose graduates are not expected to be individually unfit is inconsistent with this perspective. As for the broad statement of purpose on which the majority relies, it provides no authority for a law society

to exercise its statutory powers for a purpose lying outside the scope of its mandate under the guise of “preserving and protecting the rights and freedoms of all persons”. For example, the [Law Society] could not take measures to promote rights and freedoms by engaging in the regulation of the courts or bar associations, even though such measures might well impact “the public interest in the administration of justice”. …

 It is the scope of the [law society’s] statutory authority that defines how it may carry out its public interest mandate, not the other way around. [286-87]

The law societies are not empowered to regulate student selection by law schools in the name of whatever they conceive as the public interest; if they were, they could (and perhaps would have to) regulate other aspects of the law schools’ policies that can have an impact on access to and diversity within the legal profession ― even, say, tuition fees. This simply isn’t the law societies’ job under their enabling legislation.

On this as on other points, I agree with the dissent ― which is probably the best opinion to come out of the Supreme Court in a long while, though it tragically falls three votes short of becoming the law. The majority’s approach is not altogether surprising. Indeed, it exemplifies tendencies illustrated by other cases, such the making up of reasons where the administrative decision-maker gave none, the better to “defer” to them. I once described judges engaged in this practice as playing chess with themselves and contriving to lose. More significantly, the Trinity Western cases resemble the recent decision in West Fraser Mills Ltd v British Columbia (Workers’ Compensation Appeal Tribunal), 2018 SCC 22, in that, as in that case, the majority seizes on a broad statement of purpose and disregards statutory language that more carefully circumscribes the powers to be exercised by an administrative decision-maker, expanding its competence so that it has virtually no limits. I described this aspect of West Fraser here, and stressed the importance of the “perspective in which a statute is intended to operate”, complete with the Rand quotation, here.

What is perhaps an innovation, albeit one that follows the same perverse logic of courts enabling regulators where legislators did not, is allowing the administrative decision-maker to effectively enforce (under the euphemism of “looking to”) laws that it is no part of their statutory mandate to enforce, supposedly because these laws represent “shared values”. The framers of these laws ― both the Charter and the British Columbia Human Rights Act ― made a conscious decision that they would not bind private entities generally, or religious institutions such as Trinity Western specifically, respectively. No matter ― the majority thinks that administrative decision-makers can apply them regardless.

It is for this reason that, in my view, the Trinity Western cases subvert the Rule of Law. They fly in the face of the idea that, as the Supreme Court still recognized not that long ago ― in Dunsmuir v New Brunswick, 2008 SCC 9, [2008] 1 SCR 190 ―,  “all exercises of public authority must find their source in law”, and that it is the courts’ job to “supervise those who exercise statutory powers, to ensure that they do not overstep their legal authority”. [28] According to the majority, public authority can be exercised without positive legal mandate, indeed in disregard of legislative attempts to (admittedly loosely) define such a mandate, on the basis of allegedly “shared values”. One cannot help but think of the more unsavoury totalitarian regimes, where “bourgeois legality” was made to give way to “revolutionary class consciousness” or similar enormities. That these “shared values” are said to derive from the Charter, which limits the power of government and, indeed, expressly provides in section 31 that “[n]othing in [it] extends the legislative powers of any body or authority”, only adds insult to injury.

As the dissent rightly points out, on the majority’s view law societies have a roving commission to weed out injustice. They could regulate not only “courts or bar associations” but also police forces, self-represented litigants, or anyone else who comes into contact with the administration of justice. Their regulation of lawyers can extend to the lawyers’ private lives, and very thoughts ― which is what what the Law Society of Ontario is already attempting with its requirement that lawyers undertake to promote “equality, diversity and inclusion generally, and in their behaviour towards colleagues, employees, clients and the public”. Granting a regulatory body this amount of power unfettered by any guidance more precise than the notion of the public interest is inimical to the spirit of a free society.

* * *

On the question of whether the Law Society of British Columbia was entitled to hold a referendum on whether to accredit Trinity Western, the majority notes that there are not statutory limits on the ability of its governors, the Benchers, to “elect to be bound to implement the results of a referendum of members”. [49] The fact that the constitutionally protected rights were at stake does not change anything. The Chief Justice does not say anything explicitly about this, but I take it that she agrees with the majority.

Justice Rowe, however, has a different view of the matter. While he agrees that the Benchers are generally free to call and choose to be bound by the results of a referendum, he thinks that the case is altered where the Charter is involved. As I will explain in my next post, Justice Rowe (alone among his colleagues) thinks that this is not the case here. Were it otherwise, however, a referendum would not suffice to discharge the Law Society’s “responsibilities under the Charter. Is not one of the purposes of the Charter to protect against the tyranny of the majority?” [256] Majority opinion is not a sufficient basis on which constitutional rights can be restricted.

The dissent is similarly unimpressed. It notes that the majority’s basis for upholding the Law Society’s decision ― that it reflects a proportionate balancing of the Law Society’s objectives and the relevant constitutional rights ― presupposes “expertise in applying the Charter to a specific set of facts”, and requires “engagement and consideration from an administrative decision-maker”. [294] Once they decided to simply accept the outcome of a referendum of members, the Benchers did not exercise their expertise, or engage with and consider the issues; rather, they “abdicated their duty as administrative decision-makers by deferring to a popular vote”, [298] and their decision should be quashed on that basis.

The dissent is right that a referendum is simply incompatible with the framework for reviewing administrative decisions employed by the majority. It makes no sense to demand, as the majority does, that judicial review of administrative decisions effectively made by non-experts who do not deliberate be deferential on the basis of administrative expertise and deliberation.

But that, of course, does not address the real question, which is whether judicial review that implicates constitutional issues should be deferential at all. If the courts do not abdicate their responsibility to ensure that administrative decision-makers comply with the constitution, then whether these decision-makers abdicate their duty by deferring to a popular vote matters rather less. Justice Rowe cannot be right that a majoritarian procedure is, in itself, anathema as soon as the Charter is concerned. Of course the Charter is supposed to protect against the tyranny of the majority ― but it does so by empowering courts to review the decisions of majoritarian institutions, whether law societies, municipal councils, or legislatures, and not by preventing such institutions from deciding matters that might affect constitutional rights.

* * *

How, then, should the courts go about reviewing administrative decisions that implicate the Charter? I will not say much about this issue, because I do not think that the Trinity Western cases tell us much. As noted above, the claims to apply the Doré/Loyola approach of upholding administrative decisions if the achieve a “reasonable” or “proportionate” balancing of statutory objectives against the infringements of Charter rights. Both the concurring judges and the dissenters want to modify this framework and make less deferential.

This sounds like an interesting debate, but I’m not sure it is worth having, because I am not sure that the majority is speaking in good faith. For one thing, as the dissent points out, the majority is not really deferring to balancing achieved by the law societies, since neither gave reasons for its decision. For another,  the majority’s insistence that “Doré and Loyola are binding precedents of this Court” [59] is laughable. I mean this literally ― I laughed out loud when I read this. Even if we pretend that most precedents of the Supreme Court are binding on it, rather than being subject to tacit evasion and quiet undermining, as they increasingly are these days, Doré and Loyola do not belong to this category. As I’ve noted here, and as the dissent also points out (at [303]), the Supreme Court’s recent decisions in Ktunaxa Nation v British Columbia (Forests, Lands and Natural Resource Operations)2017 SCC 54 (CanLII), [2017] 2 SCR 386 and Association of Justice Counsel v. Canada (Attorney General)2017 SCC 55[2017] 2 SC 456, do not follow the Doré/Loyola approach. It is perhaps worth observing that all the members of the Trinity Western majorities except Justice Moldaver were also in the majority in both of these decisions.

The issue of how the courts should review administrative applications, or implicit applications, or failures to apply, the Charter is highly consequential. It is all the more so since the Supreme Court is letting the administrative state loose, unmoored from legislative constraint and judicial supervision on administrative law grounds. But while the suggestions of the concurring and dissenting judges in this regard are worth considering, this is not the place to do so. For the purposes of understanding Trinity Western, I think it enough to say that the Doré/Loyola approach suited the majority’s rhetorical needs, and therefore was used.

* * *

From the standpoint of administrative law and of constitutional control over the administrative state, the Trinity Western cases are a catastrophe. The Supreme Court subverts the Rule of Law by giving administrative decision-makers virtually unlimited powers, unfettered by statutory restrictions, and reinforced by the hopeless vague concept of “shared values” that allow these decision-makers to impose their views on those subject to their power quite apart from any legal authorization. As I will argue next, the Trinity Western decisions are also distressing because of their evisceration of religious freedom. However, the administrative law aspect of these cases might be an even more toxic legacy, because it cannot be confined to a single constitutional right that is an unfortunate victim of the culture war. The administrative state is pervasive, and the Supreme Court’s refusal to keep it under control will make victims on all sides of that narrower, if more salient, conflict.

Scandalizing!

Read Edward Willis’ and my submission on legislation that would censor criticism of the judiciary

A few weeks ago, I wrote about a bill, currently before the New Zealand Parliament, which would codify ― and expand ― the law of contempt of court, in particular as it relates to criticism of the judiciary. (At common law, this is known as the offence of “scandalizinig the court”.) I argued that the offence the bill would create is overbroad, that the defences to it are insufficient, and that the bill, if enacted, would unjustifiably violate the freedom of expression, the freedom of conscience, and the presumption of innocence.

Well, for once, I thought that just ranting on my blog was not enough, so Edward Willis and I started to work on a submission to the Justice Select Committee, which will be studying the bill. We have been joined by my boss, Charles Rickett, my colleagues Warren Brookbanks and Vernon Rive, as well as Andrew Geddis and Eddie Clark, in arguing that, if the provisions related to criticism of the judiciary are not removed from the bill entirely, they need at least to be amended to be more compliant with fundamental constitutional principles and rights. In particular, we propose making the falsity of any statement punishable as contempt an element of the offence, to be proven beyond a reasonable doubt by the prosecution, rather than a defence to be proven the accused; introducing a defence of honest opinion; and removing the ability of the Solicitor General to request, or of the High Court to order, that a person correct, retract, or apologize for a statement that has not been proven to constitute contempt of court; indeed we are proposing getting rid of forced corrections and apologies entirely.

You can read our submission here. Working on it with Dr Willis has been great fun, and I’m very grateful to our co-signatories for their help and support.

Remarks on Bill C-76

Freedom of expression issues in an electoral reform bill

Earlier today, I had the chance to address the House of Commons Standing Committee on Procedure and House Affairs, which is currently studying Bill C-76, a significant reform package for the Canada Elections Act. I am very grateful to the Committee for inviting me ― though I wish I’d been given more than just a few days to prepare ―, and also to its staff for making it possible for me to speak from an ocean and a continent away.

My remarks focused on the freedom of expression issues that C-76 fails to address or indeed amplifies in what I think is a dangerous quest to stop the “permanent campaign” ― dangerous because the only way to really stop the permanent campaign would be to impose permanent censorship on political debate. (Scott Reid, a Conservative member of the Committee asked me about this, and I said that I hope that Parliament will not go that far ― but I am worried that accepting the principle of regulating political speech outside of the electoral campaign period, we will not stop at just a couple of months, as C-76 does, for now.) More generally, my point was that members of the civil society ― whom election law denigrates by describing them as “third parties” ― should be heard, even at election time.

Here are my remarks. (The Chair’s reference to a miracle is due to some technical issues that prevented me from connecting to the meeting on time… but all’s well that ends well!)

Is Deference Possible Here?

The Supreme Court’s latest administrative law decision shows why disguised correctness is the default standard of review

In Groia v Law Society of Upper Canada, 2018 SCC 27, decided last week, the Supreme Court of Canada once again fractured over the approach to take to the judicial review of an administrative decision ― and, once again, the majority chose correctness review disguised as reasonableness as its methodology. The substantive issue in Groia was whether the Law Society was entitled to discipline a lawyer for advocacy that took “the form of personal attacks, sarcastic outbursts and allegations of professional impropriety, grinding the trial to a near standstill”. [12] I have no articulate views on this, except a general sense that the fewer powers law societies have, and the more circumscribed these powers are, the better. But I do want to comment on the administrative law aspects of the decision.

* * *

As Justice Moldaver, writing for the majority, describes its decision, the Law Society’s

Appeal Panel grappled with the issue of when in-court incivility amounts to professional misconduct under the Law Society’s codes of conduct in force at the relevant time. It reasoned that incivility “capture[s] a range of unprofessional communications” and ultimately settled on a multifactorial, context-specific approach for assessing a lawyer’s behaviour. [36; references omitted]

The Panel then applied this test to Mr. Groia’s case. The issue for the Supreme Court is twofold: first, it must review the approach devised by the Panel; second, the Panel’s application of this approach. However, although all distinguish the two questions they must answer, the majority, Justice Côté, who concurs, and Justices Karakatsanis, Gascon, and Rowe, who jointly dissent, all consider that the Panel’s decision on both must be reviewed on the same standard. The majority and the dissent opt for reasonableness, though they apply it differently. Justice Côté goes for correctness.

As Justice Moldaver notes, the Supreme Court’s earlier decisions “establish that law society misconduct findings and sanctions are reviewed for reasonableness”. [43] This is because both the elaboration of the applicable analytical framework and its application “involve the interpretation of the Law Society’s home statute” ― or, as in this case, rules enacted under this statute ― “and the exercise of discretion”. [45] While the question of “the permissible scope of [lawyers’] in-court behaviour is arguably of central importance to the legal system as a whole”, [51] it is not “outside the Law Society’s expertise”. [51] Indeed, “Law Society disciplinary panels are composed, in part, of other lawyers”. [52] Justice Moldaver also rejects the claim, advanced by a dissenting judge at the Court of Appeal for Ontario and accepted by Justice Côté, that sanctions for lawyers’ behaviour in the courtroom are different in that imposing them risks trenching on judicial independence. In Justice Moldaver’s view, this is simply not so: “a trial judge is free to control the conduct in his or her courtroom irrespective of the degree of deference accorded to a law society’s disciplinary decision by a different court”. [55]

Having established reasonableness as the standard of review, Justice Moldaver considers the arguments advanced against the framework developed by the Panel in detail. I will not describe his reasons, partly because I have little to say on their substance, and partly because this part of them alone runs for almost 60 paragraphs. What matters for my present purposes is this: on each point and sub-point, after reviewing the Panel’s decision in at most a single paragraph, Justice Moldaver gives extensive explanations of what the Panel’s decision means, and why it is appropriate. Though these explanations are occasionally couched in the language of reasonableness, there is no doubt that Justice Moldaver provides his own views on the approach to judging alleged incivility by lawyers, instead of merely ratifying the Panel’s.

As for the application of the framework to Mr. Groia’s conduct, Justice Moldaver concludes that the Panel’s  decision was unreasonable. In Justice Moldaver’s view ― explained over the course of over 30 paragraphs ―, the Panel failed to apply the test it had itself articulated, and to take into account the factors that, on its own stated approach, ought to have mattered. For Justice Moldaver, “there is only one reasonable outcome in this matter: a finding that Mr. Groia did not engage in professional misconduct on account of incivility”. [125] (Now, here’s a question: would it be good if someone could reverse the Supreme Court’s decisions when they don’t follow the Court’s stated approach?)

As already noted, Justice Côté is of the view that the applicable standard of review is correctness, because lawyers’ in-court behaviour must be subject to the ultimate control of the judiciary. She insists that

An inquiry by a law society into a lawyer’s in-court conduct risks intruding on the judge’s function of managing the trial process and his authority to sanction improper behaviour. It does so by casting a shadow over court proceedings — in effect, chilling potential speech and advocacy through the threat of ex post punishment, even where the trial judge offered the lawyer no indication that his or her conduct crossed the line. And it permits an administrative body to second-guess the boundaries of permissible advocacy in a courtroom that is ultimately supervised by an independent and impartial judge. [168]

Justice Côté agrees with Justice Moldaver on the application of the test for misconduct, and thus concurs in the result.

The dissenters, by contrast, agree with Justice Moldaver that the standard of review is reasonableness, and also that the Panel’s approach was reasonable. However, they disagree with the way Justice Moldaver applied this standard, accusing him of

fundamentally misstat[ing] the Appeal Panel’s approach to professional misconduct, and reweigh[ing] the evidence to reach a different result. This is inconsistent with reasonableness review as it substitutes this Court’s judgment for that of the legislature’s chosen decision maker. [177]

The dissent faults Justice Moldaver with being insufficiently deferential to the Panel. “[D]eference”, they write, “recognizes that delegated authorities will have greater expertise in matters under their scope of authority”, [178] and when the applicable standard of review is reasonableness, it “is not optional”. [179] In particular, “deference bars a reviewing court from conducting an exacting criticism of a decision in order to reach the result that the decision was unreasonable”, or from “supplement[ing] the decision maker’s reasoning for the purpose of undermining it”. [180]

The dissenters “consider that Justice Moldaver reformulates” [188] the framework articulated by the Panel. As a result, they disagree with Justice Moldaver’s application of this framework too: “[i]t is not a respectful reading of the … Panel’s reasons to articulate a novel test … then fault the Panel for failing to apply it”. [199] The Panel’s decision is intelligible and defensible, and this is not a case where only one outcome could be reasonable. Indeed, such cases will be anomalies, because

[t]he existence of reasonableness review is, rather, premised on the fact that “certain questions that come before administrative tribunals do not lend themselves to one specific, particular result”. [215, quoting Dunsmuir v New-Brunswick, 2008 SCC 9, [2008] 1 SCR 190 at [47]]

The dissent then describes ― at some length, and with limited reference to the Panel’s decision ― what it expects to be the pernicious consequences of the majority’s decision. The majority, the dissent fears, “sends the wrong message to those who look to this Court for guidance”. [227]

* * *

Therein, it seems to me, lies the rub. People look to the Supreme Court for guidance ― not for mere affirmation that an administrative decision-maker’s reasons were good enough and that in any event there is no right answer to the question they addressed. The whole point of having what the Constitution Act, 1867 foreshadows as a “general court of appeal for Canada” is that such an institution can explain what the law is. If such a court does not say what the law is, but only indicates that an administrative decision is within the bounds of what the law will tolerate ― without explaining where these bounds actually are ― then it is not doing its job.

It is no surprise, then, that Justice Moldaver’s reasons show little sign of deference to the Panel. What lawyers across Canada are interested in is what the Supreme Court itself thinks about their standards of conduct ― not in whether it thinks that the opinion of a single provincial disciplinary body on this subject was “within a range of possible, acceptable outcomes which are defensible in respect of the facts and law”. [Dunsmuir, [47]]  Indeed, the dissenters, for all the bitterness with which they chide Justice Moldaver for his failure to defer, and despite their own ostentatious display of deference, cannot help but enter the debate with their own comments about the appropriate standards of civility. If the question the Court is deciding is indeed one of central importance to the legal system, as Justice Moldaver concludes (and the dissent specifically agrees with this part of his reasons), this is entirely comprehensible.

Hence the question that, with apologies to Ronald Dworkin, I ask in this post’s title. Earlier this year, I wondered whether “the Court is growing disenchanted with deference to administrative decision-makers’ decisions on questions of law”, and perhaps even trying to kill off reasonableness review without telling anyone. The cases decided since then only provide more evidence for the proposition that the default standard of review in Canadian administrative law is disguised correctness, not reasonableness as the Supreme Court would have us believe. But perhaps the Supreme Court has a defence of  necessity to the charge of attempted murder. No court in its position could do otherwise.

Yet even if this be so, the Rule of Law issues I raised earlier do not go away. Law should be clear, and the fact of its change, transparent. The law of judicial review applied by the Supreme Court is opaque and hidden. And there is a further issue to think about: is it permissible for an apex court to apply a different law than the one it instructs other courts to apply, just because of its position within the legal system? It is, to say the least, not obvious that this is so ― which presumably is precisely why the Supreme Court engages in so much obfuscation. Once again, I conclude that it would be better ― more transparent, more conducive to the coherence of our legal system ― for the Supreme Court to (openly and publicly) abandon reasonableness review on questions of law in most or in all cases.

* * *

Groia illustrates a couple of additional problems with reasonableness review, as theorized and practised by the Supreme Court. On a theoretical level, it exposes the deficiencies in the Court’s justifications for deference, which I have already discussed at some length. Justice Moldaver explains that, while of central importance, the issue of lawyers’ behaviour is within the expertise of law society adjudicators. Indeed these adjudicators are themselves lawyers! But what, one would like to ask Justice Moldaver, are judges? Aren’t they lawyers too, and aren’t they, in principle (though, granted, not necessarily in practice) more eminent lawyers than those who sit on law society tribunals? As the dissenting opinion in Edmonton (City) v Edmonton East (Capilano) Shopping Centres Ltd, 2016 SCC 47, [2016] 2 SCR 293, co-written by Justice Brown ― who joined Justice Moldaver’s majority opinion in Groia ―, and joined by Justice Moldaver himself, pointed out, “expertise is a relative concept. It is not absolute.” [84] Sometimes administrative decision-makers are more expert than courts, which might be at least a practical reason for deference ― though not a legal one, as Mark Mancini’s contribution to the Dunsmuir Decade symposium pointed out. But this justification is implausible here.

For their part, the dissenters appeal to a different justification for deference: “reasonableness review is premised” on the existence a multiplicity of possible answers to questions to which it applies. Yet, as I noted in the posted linked to in the previous paragraph, deference is the presumptive standard of review for any question concerning the interpretation of administrative decision-maker’s “home statute”, and

the great variety of statutes setting up administrative tribunals, and indeed of particular provisions within any one of these statutes, makes it unlikely that all of the interpretive questions to which they give rise lack definitive answers. Perhaps the suggestion is that the very legislative choice of setting up administrative tribunals to address these questions means that legislatures think that these questions lack definitive answers, but that too seems implausible.

Indeed, the dissent’s reasoning is circular: reasonableness “is premised” on there being multiple possible answers, and since reasonableness applies, it follows that the question under review must have multiple answers.

The practical concern with reasonableness review that Groia illustrates has to do with the supplementation of an administrative decision-maker’s reasons by a reviewing court. The dissent says that Justice Moldaver is wrong to do this to “undermine” the Panel’s review. Yet one of its author’s, Justice Karakatsanis wrote, and another, Justice Gascon, joined, the majority judgment in Edmonton East, which did not so much supplement as outright made up the administrative decision in order to uphold it. Both of these positions ― no supplementation to undermine, any amount of supplementation to uphold ― seem consistent with the Supreme Court’s jurisprudence. But they are quite inconsistent with one another.

A clarification: what I’ve said above primarily concerns the first issue in Groia, that of the applicable framework. On the second one, the application of that framework, without entering into the substance of the debate between majority and dissent, and subject to my comments regarding the supplementation of reasons, I think that reasonableness is the appropriate standard of review. To me, Justice Côté’s concerns about judicial independence seem misplaced, for the reasons given by Justice Moldaver. Besides, while this case did not turn on a credibility issue, other, similar ones may well do so. How are courts supposed to engage in correctness review on that? It seems to me that the two issues in Groia should have been addressed on different standards of review. But no opinion takes that approach.

* * *

Groia provides further confirmation, if any were yet needed, that the Canadian law (if it may be called law at all) of judicial review of administrative action is in a dire state. Its theoretical foundations, which have long been weak, are being eroded decision by decision; its practical construction is falling apart. Perhaps these concerns are soon bound to be a thing of the past, as the Supreme Court’s coming review of the Dunsmuir framework simplifies what is abstruse, clarifies what is opaque, and cuts through what is impenetrable. Perhaps. But considering the confusion and the acrimony that seem to be the most remarkable features of the Court’s latest administrative law pronouncements, I suggest that you should not hold your breath.

NOTE: As some readers have pointed out, I had initially mixed up Justices Karakatsanis and Côté at one point. Correction made, and apologies!

FURTHER NOTE: It wasn’t just at one point. More corrections made.

It’s a Dog!

The majority’s pro-regulatory beliefs help make West Fraser a dog of a decision

In previous posts, I have summarized the Supreme Court’s decision in West Fraser Mills Ltd v British Columbia (Workers’ Compensation Appeal Tribunal), 2018 SCC 22, upholding the validity of a regulation of the British Columbia Workers’ Compensation Board imposing safety-related obligations on owners of forestry workplaces, and the legality of a penalty imposed on such an owner under a statutory provision authorizing penalties against employers who do not comply with regulations, and discussed some of the administrative law issues to which this decision gives rise. As previously noted, however, West Fraser is interesting not just for what it can tell us about the finer points of judicial review, but also for what it implicitly says about the Supreme Court’s relationship to the administrative state.

In its overall orientation as well as in some details, the majority opinion, written by Chief Justice McLachlin with the agreement of five colleagues, is reminiscent of R v Comeau, 2018 SCC 15 (further confirmation, perhaps, of the Chief Justice’s likely authorship of that ostensibly per curiam decision). It’s not just that the deferential approach to judicial review is, in practice, in Canada, almost necessarily a pro-regulatory position, though that’s part of the story. It’s also that, on the Chief Justice’s view of statutory interpretation, a statute’s pro-regulatory purpose is to be amplified, while whatever constraints on its pro-regulatory orientation the statute might contain are to be played down. And, most fundamentally, the Chief Justice tells us that regulation is good, and the more of it there is, the better.

As discussed in more detail in my previous posts, the Chief Justice’s approach to both issues in West Fraser is deferential ― or so the Chief Justice says. In reality, I have argued, she engages in disguised correctness review and agrees with the administrative decision-maker. But, in principle at least, it’s the deferential approach that’s binding on future courts. Conceptually, deference might be neutral as between pro- and anti-regulatory outlooks. In the United States, famously, Chevron USA v Natural Resources Defense Council, 467 US 837 (1984), which required a deferential approach to administrative interpretations of legislation, arose out of efforts at deregulation by the Reagan administration. Even so, it seems likely that administrative decisions that reduce the scope or onerousness of regulation are less likely to be challenged, so that in practice a deferential court will be a pro-regulatory court even if it has no particular desire to be one. And, of course, the prospects of serious regulatory roll-back in Canada seem rather remote.

But there is more. Whatever abstract theory might suggest, Canadian deference theorists are unabashedly in the pro-regulatory camp. David Dyzenhaus’s famous chapter on “The Politics of Deference: Judicial Review and Democracy”, from which the Supreme Court in Dunsmuir v New Brunswick, 2008 SCC 9, [2008] 1 SCR 190, plucked the phrase “deference as respect”, [48] urged the courts to defer to administrative decision ― because its author thought that administrative regulation was normatively desirable, notably in that it advances the cause of equality. (Professor Dyzenhaus went so far as to argue that non-deferential review of the decisions of human rights tribunals by independent courts was a “setback[] to the constitutional commitment to equality between Canadians”, (297) as if the courts were not ultimately responsible for upholding this constitutional commitment.) But for Professor Dyzenhaus, deference was a one-way ratchet: if, peradventure, “judges find themselves confronted with administrative determinations of law that flow from” deregulatory impulses, “they should not be embarrassed to ask how those determinations advance the cause of equality” (306) ― and  so to intervene if they do not. Much more recently, in her contribution to the “Dunsmuir Decade” symposium, Kate Glover proposed a novel theory according to which judicial deference to administrative decision-makers is now a constitutional requirement. Professor Glover did so in an attempt to prepare the administrative state’s defences against a (purely hypothetical, as she rightly notes) siege by deregulating anti-administrativists. This should, I think, be a warning to anyone who hopes that deferential courts would in fact be neutral as between more regulation or less.

Statutory interpretation, no less than (rhetorical) deference, is marshalled in support of regulatory expansion by the Chief Justice. She stresses that the Workers Compensation Act, the statute at issue, “is meant to promote workplace safety in the broadest sense”, [18] and discounts the more specific purpose statements that seem to suggest that this purpose is not to be pursued by whatever means necessary. Focusing on them is “formalistic” and “inconsistent with a purposive interpretation of the scheme”. [18] (To be honest, I don’t know what “formalistic” is supposed to mean here. But it’s bad, bad, bad.) When it comes to the issue of whether the statute authorized the imposition of penalties seemingly reserved for “employers” on firms that were, in the context of the events in relation to which the penalty was being imposed, “owners” but not “employers”, the Chief Justice once again favours an interpretation “more supportive of the goal of promoting safety and the overall operation of the scheme”. [38] This interpretation, as I argued in my last post, is strained to the point of rendering the statutory language meaningless. However, what mattered to the Chief Justice is that reading the statute to mean what it said “would undermine [its] goals”, while the strained interpretation “would further the goals of the statute and the scheme built upon it”. [40] In short the statutory purpose, understood in the most pro-regulatory way possible, must be given effect ― other purposes and text itself be damned.

Now, in fairness, to the Chief Justice, she arguably is dealing with a real interpretive difficulty. Probably all, certainly most statutes involve compromises between a number of values or purposes. The Workers Compensation Act promotes workplace safety, of course, but it also accommodates a measure of free enterprise. It could, after all, have imposed  even more invasive regulation that might have done even more for workplace safety ― but the legislature chose to only go so far towards that purpose, because going further might have undermined other purposes that it also valued. Or, to take another example, human rights legislation doubtless aims at achieving equality in society ― but the limits on its scope, for example the fact that it is typically not applicable to personal, non-economic relationships, suggests that it respects a measure of personal liberty ― implicitly anyway. The problem, though, is that if the legislature enacts a provision that specifies the purpose of a statute, it is likely to present  some, perhaps just one, of the values that the statute actually accommodates, as the purpose it seeks to realize, and omit the others. This might be done for political reasons ― it might not look good to tell workers, or voters, “we’re protecting you, but only some, since protecting you more would actually put a bunch of you out of work”. Perhaps more forgivably, this might also be because, relatively to the previous state of the law, the statute does move things in the direction of more protection, so characterizing that as its main purpose is not unfair. But, either way, the legislature is misleading those who read and try to understand the statute ― above all the courts ― by giving them a distorted view of its objectives.

What are the courts to do when the legislature does this? I think they should do what Justice Côté did in West Fraser ― read the whole statute and give effect to its terms, not letting the (one-sided) purpose section override the substantive provisions. By choosing to focus on the purpose indication (and to read it selectively to emphasize its pro-regulatory aspects), the Chief Justice once again implicitly privileges regulation. For the same political reasons I refer to above, it seems likely that the legislatures will systematically overstate the significance of their regulatory purposes, and understate whatever countervailing values might also be animating them. So, a judge who overvalues statutory statements of purpose at the expense  of the text will tend to produce pro-regulatory outcomes even  without setting out to do so. But I doubt that the Chief Justice is such a judge.

In fact, her reasons in West Fraser suggest that the Chief Justice’s basic disposition is in favour of regulation ― the more of it the better. She is comfortable with a legislative mandate to an administrative agency “to enact whatever regulations it deemed necessary to accomplish its goals of workplace health and safety”, [10] going so far as to characterize this as an “unrestricted delegation of power”. [11] Though admittedly it is unlikely that the Chief Justice means this adjective literally, it is remarkable that she appears untroubled by the idea of an unrestricted regulatory mission. Later, when discussing the issue of the penalty, the Chief Justice writes that “[t]he general scheme of the [Workers Compensation Act] is to hold both owners and employers responsible in an overlapping and cooperative way for ensuring worksite safety” [43] by way of justifying holding the ones responsible for violations of obligations the statute only seems to impose on the others. As in the area of what used to be known as division of powers, “cooperation” comes to mean the accumulation of regulatory mandates ― and is seen as a good thing. The Chief Justice’s shows her attitude towards such mandates most clearly when she makes a point of observing that the regulation challenged in West Fraser was adopted

in response to a concern in the province about the growing rate of workplace fatalities in the forestry sector … provid[ing] a clear illustration of why a legislature chooses to delegate regulation-making authority to expert bodies — so that gaps can be addressed efficiently. [20]

It is important that something be done about social problems, and whatever is done about them by regulators ― presumed,  conclusively, to be experts ― must therefore be good. There is only a step, if that, from here to what Sir Humphrey Appleby described as “the politician’s logic”, and what later became known as “the politician’s syllogism“. Something must be done; this is something; therefore this must be done. The Chief Justice has, on the occasion of her already-happened-but-still-impending retirement, and indeed before, been much praised for her statecraft. In West Fraser, she reminds one of The Right Honourable Jim Hacker, MP.

Of course, by criticizing the Chief Justice’s pro-regulatory views ― and those of the other judges in the West Fraser majority ― I do not mean that judges ought to become the flag-carriers of deregulation. They should be neutral and, within constitutional bounds, give effect to the legislation that Mr. Hacker’s colleagues, in their wisdom, enact. Much of this legislation will delegate considerable regulatory powers to administrative agencies. That’s too bad, so far as I am concerned, but this a policy view, not a constitutional argument. However, judges should not, in the name of doing something, be trying to give the regulators freer rein than legislators intended. In Yes, Prime Minister, just before Sir Humphrey formulates the politician’s syllogism, his mentor, the wily Sir Arnold Robinson, exposes its logic by proposing a different one with the same logical structure: “all cats have four legs; my dog has four legs…” “Therefore,” concludes Sir Humphrey, “my dog is a cat.” Well no. And so West Fraser is a dog of a decision.

 

Jiggery-Pokery

The standard of review issues in the Supreme Court’s West Fraser decision

In my previous post, I summarized the Supreme Court’s decision in West Fraser Mills Ltd v British Columbia (Workers’ Compensation Appeal Tribunal), 2018 SCC 22, which upheld the validity of a regulation of the British Columbia Workers’ Compensation Board imposing safety-related obligations on owners of forestry workplaces, and the legality of a fine levied on such an owner under a statutory provision authorizing penalties against employers who do not comply with regulations. The Court was divided on both the approach to and the merits of the first issue, and at least on the merits of the second.

As I noted in that post, there is quite a lot to say about the decision. Others have already commented on it. Shaun Fluker, over at ABlawg, focuses on how West Fraser fits, or doesn’t fit, with the Supreme Court’s precedent on analysing the validity of regulations, while Paul Daly’s Administrative Law Matters post which looks ahead to the Supreme Court’s upcoming reconsideration of Dunsmuir. In this post, I add some observations of my own on the various opinions in West Fraser. In a subsequent one, I will explore what these opinions tell us about the Supreme Court’s relationship with the administrative state.

The first point I would note here is that Chief Justice McLachlin’s opinion for the majority, which purports to apply deferential reasonableness review on the first issue, and even more deferential patent unreasonableness review on the second, is actually an excellent example of disguised correctness review. As the former Justice Joseph Robertson described it here, in one of his contributions to the “Dunsmuir Decade” symposium,

Disguised correctness review means that the reviewing court conducts a de novo analysis of the interpretative issue. Little or no meaningful reference is made to the reasoning of the administrative decision-maker; just the interpretative result.

For his part, David Mullan noted that

In its purest form, reasonableness review of determinations of law should start with the tribunal’s reasons for decision. … Too frequently, however, the starting point is not the tribunal’s reasons but the arguments on the merits of the question of law or statutory interpretation advanced by the parties with the reasons either ignored or mentioned only in passing. Consequently, the professed commitment to deference gets submerged in a thorough-going re-examination of the relevant question of law.

That is exactly what happens in the majority reasons in West Fraser, and not only on the first issue, on which there are no reasons for decision to review ― which, as Justice Côté points out, makes the notion of deferential review problematic in this context ―, but also on the second one. You’d think that, applying a patent unreasonableness standard of review, the majority would pay attention to the decision on whose reasonableness it must pronounce, but no ― the decision itself is summarized in a single paragraph and never quoted. For the rest of her reasons, the Chief Justice refers to it only obliquely.

So perhaps the apparent disagreement about standards of review (on the first issue) is really beside the point. This is all the more so since, in the reasons of two of the three dissenting judges, correctness review does not look very exacting at all. Justice Brown, after waxing eloquent about the importance of the courts ensuring that administrative decision-makers act within the limits of their authority, is content to note that the limits in this case are broad. Justice Rowe, for his part, endorses the Chief Justice’s comments about the breadth of the administrative power as sufficient to dispose of the jurisdictional question, presumably on the correctness standard. Yet surely saying that the powers of administrative decision-maker are broad is not enough to show that its regulation was within these powers. The Chief Justice speaks of “unlimited” powers, as if such a thing were possible under the Rule of Law, and as if Justice Rand’s comments in Roncarelli v Duplessis, [1959] SCR 121, were not among the best known in all Canadian law. Here they are, in case anyone needs reminding of them:

In public regulation of this sort there is no such thing as absolute and untrammelled “discretion” … there is always a perspective within which a statute is intended to operate; and any clear departure from its lines or objects is just as objectionable as fraud or corruption. (140)

Of the four judges who wrote in West Fraser, only Justice Côté took seriously the “perspective within which the statute is intended to operate” and the notion that the administrative tribunal does not have unlimited powers to act within the general area under its supervision. Justice Côté’s colleagues, even those who ostensibly stress the courts’ supervisory role, are content administrative power run wild ― a point to which I return below.

All that said, while I think that Justice Coté is right on the merits of the first issue, both she and her colleagues make important points on the general approach. (The trouble with Justice Brown and Justice Rowe is that they do not really practice what they preach, and fail to ask the hard questions that they rightly suggest the courts ought to be asking of administrative decision-makers.) Justices Côté and Brown are right that the point of judicial review is to ensure that administrative decision-makers exercise those powers delegated to them by statute, and no others. Justice Côté is right to point out that in policing the boundaries of administrative decision-makers’ jurisdiction the courts are upholding the primacy of the legislation enacted by elected legislatures against the self-aggrandizement of the administrative decision-makers. Justices Côté and Rowe are right to call out the vacuousness of the Chief Justice’s appeal to administrative expertise as a justification for deferential review of the validity of regulations. Expertise may be relevant to thinking about the policy merits of a regulation ― and I think that Justice Brown is right that these should be of no concern to the courts, even on a deferential standard (though note that Justice Rowe seems to disagree) ― but contrary to what the Chief Justice suggests the wisdom of the regulation is not at issue in West Fraser.

I think, however, that the comments of Justices Côté and Brown raise even bigger questions about judicial review and judicial deference. Justice Côté insists that there is

an important distinction between actions taken by a regulator in an adjudicative capacity and actions taken by a regulator in a legislative capacity — a distinction that is central to the policy concerns that animate judicial review and the traditional standard of review analysis. [57]

Justice Brown agrees that this distinction is important as the law now stands, stressing that, since “[p]ublic power must always be authorized by law … no statutory delegate, in enacting subordinate legislation (that is, in making law), may ever exceed its authority”. [116; emphasis Justice Brown’s] But, in an obiter dictum, he also worries that

in many cases, the distinction between matters of statutory interpretation which implicate truly jurisdictional questions and those going solely to a statutory delegate’s application of its enabling statute will be, at best, elusive. [124]

The Chief Justice’s reasons in effect say that the distinction is elusive, and perhaps non-existent, or at any rate not worth bothering about, in all cases, including this one. In her view, it follows that pretty much all judicial review should be deferential.

But we can share the Chief Justice’s or, more plausibly, Justice Brown’s concern about the elusiveness of the distinction ― we might think that the distinction is often, though probably not always, difficult to draw ― draw from this the opposite conclusion. That is to say, we might think, not that there is basically no such thing as a jurisdictional question, but rather that most questions of law are in a sense jurisdictional and therefore call for correctness review ― because public power must always be authorized by law, and the Rule of Law, therefore, demands no less. This position would, I think, be similar to the approach taken by English (and New Zealand) administrative law after Anisminic v Foreign Compensation Commission, [1969] 2 AC 147 (which Professor Daly recently revisited on Administrative Law Matters). Indeed, Justice Brown’s own reasons suggest that the contrary approach, favoured by the Chief Justice (and perhaps, to a lesser degree, by Justice Brown’s own concluding obiter), leads to a paradox (call it the paradox of deference). If administrative interpretations of law are approached with deference on the basis that they draw upon policy expertise and “field sensitivity”, and if more than one interpretation of a statute is allowed to stand on the basis that they all fall into a range of reasonable outcomes, then isn’t the administrative decision-maker interpreting a statute “making law” just as as surely as if it were “enacting subordinate legislation”? And is it not, then, just as important to ensure that the interpreter “may ever exceed its authority”, because “[t]he rule of law can tolerate no departure from this principle”? [116] Justice Rowe’s view that administrative decision-makers are generally not experts in statutory interpretation ― including but not limited to the category of jurisdictional questions narrowly defined, is the more logical one.

Finally, while others who have written about West Fraser have not discussed the second issue it addressed ― that of the penalty ― I think it is worth addressing at least briefly. The Chief Justice’s analysis on this issue is disturbing. As Justice Côté explains, the legislature carefully wrote the statute to distinguish “employers” and “owners”. The Chief Justice insists that this doesn’t matter because all “owners” are employers too so long as they have employees of their own visiting the worksites that they own, as they are required. As Justice Côté rightly says, this amounts to the re-writing of the legislation. In fact, while Justice Côté is too polite to say so, I think that the Chief Justice’s reasoning on this issue can best be described by borrowing Justice Scalia’s words in King v Burwell, 576 US __ (2015) ― it is “interpretive jiggery-pokery”, as a result of which “[w]ords no longer have meaning”.

Why does a majority of the Supreme Court engage in such unseemly activities? If, unlike me, you believe that the Chief Justice’s opinion is genuinely deferential to the administrative decision, then you should see the fact that this jiggery-pokery takes place in the course of (über-)deferential review ― which is supposed to be all about giving effect to the legislature’s intention ― as an illustration of the paradox of deference described above. Deferring to the administrative decision-maker means allowing it to become a law unto itself, free from the constraints imposed by statute ― and having to scramble to make it look like the administrative decision really does make some kind of sense.

If, however, you agree with me that the Chief Justice is actually engaged in disguised correctness review, things are, if anything, even worse. The Chief Justice is not merely forced, by her preference for deference, to allow the administrative decision-maker to rewrite the statute, but actively complicit in its doing so. As I will explain in the next post, this is what I think is going on. Indeed, in my view the Chief Justice engages in results-oriented, pro-regulatory reasoning throughout her West Fraser opinion. She thinks, no doubt, that she acts wisely and well. “Pure applesauce!”

Jousting over Jurisdiction

A summary of the Supreme Court judges’ competing views on how to assess the validity of delegated legisation

The Supreme Court’s decision in West Fraser Mills Ltd v British Columbia (Workers’ Compensation Appeal Tribunal), 2018 SCC 22, is, as Robert Leckey observed on Twitter, “[o]ne for the judicial-review nerds or junkies”. But it is also much more than that, because it a chilling reminder of what I recently called the Supreme Court’s “pro-regulatory bias“, and its resulting complacency in the face of administrative lawlessness. As I will explain shortly, there are four different opinions in the case, dealing with two different issues. In this post, I mostly review these opinions, quoting from them at some length. This will be quite long, I am afraid, due to the amount of ground to cover and to the importance of getting a sense of the judges’ thinking. I will offer my own comments separately.

The case arose out of a tragic accident. On land owned by West Fraser, a worker employed by an independent contractor “was fatally struck by a rotting tree”. [1] The provincial Workers’ Compensation Board fined West Fraser, for failing to comply with a regulation (that it had itself made in purported exercise of its authority under s 225(1) of the British Columbia Workers Compensation Act to “make regulations [it] considers necessary or advisable in relation to occupational health and safety and occupational environment”) requiring “[t]he owner of a forestry operation” to “ensure that all activities of the forestry operation are both planned and conducted in a manner consistent with this Regulation and with safe work practices acceptable to the Board.” As basis for its power to impose the fine, the Board relied on s 196(1) of the Workers Compensation Act, which authorized it to “impose on an employer an administrative penalty” for, among other things, failure to comply with the relevant regulations.

West Fraser challenged the legality of this fine on two grounds. First, it argued that the regulation with which it was said not to have complied was ultra vires the Board ― that was not authorized by the Workers Compensation Act. On this issue, the Supreme Court split 8-1: the majority upholds the regulation, though Justice Brown takes a very different approach from the majority judgment authored by Chief Justice McLachlin, and Justice Rowe is at best ambivalent; Justice Côté dissents. Second, West Fraser argued that, even if the regulation was valid, it could not be fined for breaching it, since within the meaning of the Workers Compensation Act it was, in relation to the victim, an “owner” (of the workplace), and not an “employer”. On this point (and, therefore, in the result), Justices Brown and Rowe agree with Justice Côté’s dissent.

* * *

For the Chief Justice, the approach to the question whether a regulation was authorized by the statute pursuant to which it was purportedly made is identical to that followed on any other “judicial review of the exercise of delegated administrative powers”, [8] and set out in Dunsmuir v New Brunswick, 2008 SCC 9, [2008] 1 SCR 190. Given the Board’s regulatory expertise, the issue is whether the impugned regulation “represents a reasonable exercise of the Board’s delegated regulatory authority”. [10] While “some” ― that would be the Chief Justice’s colleagues who disagree with this approach ― argue that the issue if one of jurisdiction, and thus under Dunsmuir the correctness standard applies, the Chief Justice takes the position that

Where the statute confers a broad power on a board to determine what regulations are necessary or advisable to accomplish the statute’s goals, the question the court must answer is not one of vires in the traditional sense, but whether the regulation at issue represents a reasonable exercise of the delegated power, having regard to those goals. [23]

In this case, the “delegated regulatory authority” is vast: “the Legislature indicated it wanted the Board to enact whatever regulations it deemed necessary to accomplish its goals of workplace health and safety”. [10] This “delegation of power to the Board could not be broader” [10] ― indeed, it is “unrestricted” [11] or, at least, it authorizes “any regulation that may reasonably be construed to be related to workplace health and safety”. [11]

This might be enough to uphold the regulation on the Chief Justice’s approach ― but Justice Côté, as we shall see, forces her to elaborate. The Chief Justice insists that the regulation at issue is both consistent with the purpose and “fits with other provisions of” [14] the Workers Compensation Act. And the Chief Justice invokes “two additional external contextual factors” . [19] For one thing, the impugned regulation was a “response to a concern in the province about the growing rate of workplace fatalities in the forestry sector”, and thus “a clear illustration of why a legislature chooses to delegate regulation-making authority to expert bodies — so that gaps can be addressed efficiently”. [20] For another, the Regulation is a logical extension of the owners’ existing duties. In short, even on a correctness standard, “the Regulation plainly falls within the broad authority granted” to the Board. [23]

The dissenting judges disagree with the Chief Justice’s approach. Justice Côté delivers the most sustained rejoinder. She insists that the question “whether the Board has the authority to adopt a regulation of this nature at all” “is jurisdictional in nature” [56] and so must be reviewed on a correctness standard: “[t]he Board … possesses only the authority that is delegated to it by statute”, [56] and this authority either extends to the making of the Regulation, or it doesn’t. Indeed, since it “is an unelected institution”, it is important to “ensure[] that the Board … does not aggrandize its regulation-making power against the wishes of the province’s elected representatives”. [66] Besides, unlike when it is adjudicating a dispute, an administrative decision-maker determining the scope of its regulatory authority neither possesses expertise superior to that of the judiciary, nor brings to bear policy considerations or factual understanding unavailable to the courts. And anyway, reasonableness review, which is supposed by focused on the administrative decision-maker’s reasons, can hardly be applied to rule-making decisions which the regulators need not explain: “[i]f a court does not know the reasons justifying a decision or an exercise of jurisdiction, how can it afford any deference?” [69] Justice Côté adds that the Chief Justice’s “rationale largely escapes [her]”, and her “basis for applying the reasonableness standard remains largely unexplained”. [70] The Chief Justice, she says, “has offered almost no analysis on a question that will prove to be important in subsequent cases”. [74] These are fighting words by the usually demure standards of the Supreme Court of Canada.

Justice Côté also disagrees with the Chief Justice on the merits. In her view, the impugned Regulation “impermissibly conflates the duties of owners and employers in the context of a statutory scheme that sets out separate and defined obligations for” each. [75] Consistently with the statutory purpose, set out in s 107(2)(e) of the Workers Compensation Act, to share out responsibility for workplace safety “to the extent of each party’s authority and ability”, the employers’ duties have to do with their relationship with the workers; the owners’, with the employers. They are “separate silos of responsibility”, each actor being assigned that part of the overall task of protecting workplace safety that it is “in the best position to assume”. [83] The impugned Regulation forces owners to micro-manage workers, taking up a role which the Workers Compensation Act instead assigns to employers, and is thus inconsistent with the statutory scheme and purpose. Although its powers are broad, the Board cannot do such a thing: “[o]therwise, there would be no functional limit on the Board’s ability to enact regulations … in some way connected to some abstract vision of occupational health and safety”. [87] Regardless of what might have prompted the Board to regulate in the way it did, it lacked the authority to do it.

Justice Brown also insists on correctness review for the validity of the Regulation. The matter, in his view too, is one of jurisdiction, and Dunsmuir requires the courts to provide their own answers to truly jurisdictional questions. Like Justice Côté, Justice Brown faults the Chief Justice for her “inadequate” response that “elide[s]” the issue. [113] For Justice Brown,

a central judicial function is to ensure that statutory delegates such as the Board act only within the bounds of authority granted to them by the legislature. … Public power must always be authorized by law. It follows that no statutory delegate, in enacting subordinate legislation (that is, in making law), may ever exceed its authority. The rule of law can tolerate no departure from this principle. [116; emphasis in the original]

The substantive reasonableness of a regulation, by contrast, is not a matter for the courts. Provided that the regulation was authorized by statute and not made oppressively or in bad faith, the courts should not interfere. All that said, on the merits, Justice Brown concurs with the Chief Justice. In a single sentence, he concludes that the grant of regulatory authority in the Workers Compensation Act “is sufficiently broad to support” [121] the impugned Regulation.

For his part Justice Rowe professes to “concur with [the Chief Justice’s] analysis”, [128] but only with the proviso that it be split into two parts: first a jurisdictional analysis (which presumably is to be approached on a correctness standard, following Dunsmuir); and then “a substantive inquiry into the exercise of the grant of authority” [127] and its consistency with the purpose of the statute. While Justice Rowe is of the view that the Chief Justice undertakes both of these steps, the second, as I indicated above, is largely if not entirely a response to Justice Côté. Justice Rowe’s agreement with the Chief Justice is thus more apparent than real. He also makes a point of hitting out at “one of the myths of expertise that now exist in administrative law”, [129] arguing that “‘working day to day'” to apply a statutory regime “does not” “give [administrative decision-makers] greater insight into statutory interpretation, including the scope of jurisdiction, which is a matter of legal analysis”. [129]

* * *

The second issue, recall, is whether the Board was entitled to fine West Fraser under a statutory provision that authorizes the imposition of penalties on “employers” who do not comply with regulations. Here, there is no overt dispute about the standard of review: the Chief Justice finds, and Justice Côté (with whom Justices Brown and Rowe agree) “assume[s]”, [95] that provincial legislation imposes patent unreasonableness as the applicable standard.

The Chief Justice finds that to read “employer” as extending to an owner is not patently unreasonable. To be sure, the alternative opinion is “plausible”, [37] but there are also arguments in support of the “broader” view, “one more supportive of the goal of promoting safety and the overall operation of the scheme”. [38] Since West Fraser “employed persons to carry out the duties imposed by” the Regulation, [38] ― and indeed it had, to being a corporation ― it was an “employer” as well as an “owner”. Moreover, “[t]he general scheme of the [Workers Compensation] Act is to hold both owners and employers responsible in an overlapping and cooperative way for ensuring worksite safety”. [43] Since West Fraser “had sufficient knowledge and control over the worksite in question to render it responsible for the safety of the worksite”, [47] penalizing for the safety shortcomings was reasonable.

Justice Côté sees things differently. Patent unreasonableness is a deferential standard of review, “but there are some interpretations of law that are so far beyond the pale that they cannot be permitted to stand”. [107] The statute carefully distinguishes the roles of owners and employers, and it is impossible to read a provision that only applies to one of these roles as applying to the other too. Although the same entity may play both roles in a given situation, the penalty applicable to the breach of obligations associated with one is not applicable to the breach of those associate with the other. When the legislature wanted to speak more broadly, it used the word “person” rather than the specific terms “owner” or “employer”; the Chief Justice’s “reasoning in this case effectively rewrites” [102] the Workers Compensation Act, undoing legislative choices to uphold “an unbounded interpretation” [104] by the administrative decision-maker. It is not enough, Justice Côté adds, to point to the general purpose of the statute to uphold this interpretation:

The legislature may have intended to pursue that purpose, but it did so through limited means … To hold that any interpretation that the Tribunal views as advancing the goal of health and safety can survive patent unreasonableness scrutiny would render judicial review meaningless. [107]

* * *

There is a lot to chew on here, and I will mostly do so in two upcoming posts. In the first one, I will focus on the substance of the case ― the various views on the proper approach to determining the validity of a regulation, the validity of the Regulation in this case, and the reasonableness or otherwise of the fine imposed by the regulator. (Spoiler alert: to, I suspect, nobody’s surprise, I mostly agree with Justice Côté.) In the second post, I will take a step back, and discuss the broader issues having to do with the relationship between the Supreme Court and the administrative state.