Baker v Canada (Minister of Citizenship and Immigration)

Last updated
Baker v Canada (Minister of Citizenship and Immigration)
Supreme court of Canada in summer.jpg
Hearing: November 4, 1998
Judgment: July 9, 1999
Full case nameMavis Baker v Minister of Citizenship and Immigration
Citations [1999] 2 SCR 817
Prior historyJudgment for the Minister of Citizenship and Immigration in the Federal Court of Appeal
RulingAppeal allowed.
Holding
Procedural fairness will have different requirements depending on the nature and importance of the administrative decision.
Court membership
Chief Justice: Antonio Lamer
Puisne Justices: Claire L'Heureux-Dubé, Charles Gonthier, Peter Cory, Beverley McLachlin, Frank Iacobucci, John C. Major, Michel Bastarache, Ian Binnie
Reasons given
MajorityL'Heureux-Dube J (paras 1–77), joined by Gonthier, McLachlin, Bastarache and Binnie JJ
ConcurrenceIacobucci J (paras 78–81), joined by Cory J
Lamer CJ and Major J took no part in the consideration or decision of the case.
Laws applied
Pushpanathan v Canada (Minister of Citizenship and Immigration) , [1998] 1 SCR 982; Committee for Justice and Liberty v National Energy Board, [1978] 1 SCR 369 (L'Heureux-Dubé)
Capital Cities Communications Inc v Canadian Radio-Television Commission , [1978] 2 SCR 141 (Iacobucci)

Baker v Canada (Minister of Citizenship and Immigration), [1999] 2 SCR 817 is a leading Canadian administrative law decision of the Supreme Court of Canada. The Court provided guidance on the standard of judicial review of administrative decisions. The issue was what standard of procedural fairness should be applied when considering the judicial review of the waiver of the requirement that applications for permanent residence be filed from abroad. The case also clarified the need for written reasons in some administrative decisions.

Contents

Background

Mavis Baker was a Jamaican woman who lived without status in Canada for 11 years as a domestic worker. During this time she gave birth to four children in Canada. When the government discovered that she was in Canada without status she was ordered deported. She brought an application for permanent residence under section 114(2) of the Immigration Act, 1976 . The immigration officer rejected her application without giving reasons. Baker was able to make a request for the immigration officer's notes, and, based on the notes, she applied for judicial review of the decision.

Finding and disposition

The Federal Court rejected the application. The Federal Court of Appeal agreed and held that the evaluation of the application did not need to be founded on the best interests of the child. On appeal, the Supreme Court of Canada reversed this decision. It held that procedural fairness required the decision-maker to consider the human rights of Baker's children. Children's human rights are outlined in the international Convention on the Rights of the Child. The Supreme Court said that decision-makers must be "reasonable". They also found that Ministerial decisions in this case should follow values that are in international human rights law. The disposition in the case was that the matter was returned to the Minister for redetermination by a different immigration officer.

Reasons of the court

Justice L'Heureux-Dubé, for the majority, allowed the appeal. On the issue of determining the content of the duty of fairness, she outlined several factors that should be taken into consideration:

  1. the nature of the decision being made and process followed in making it;
  2. the nature of the statutory scheme and the term of the statute pursuant to which the body operates;
  3. the importance of the decision to the individual or individuals affected;
  4. the legitimate expectations of the person challenging the decision;
  5. the choices of procedure made by the agency itself.

L'Heureux-Dubé also considered the domestic use of international law in Canada. [1]

Procedural fairness issues

Baker appealed to the Supreme Court of Canada for review of the administrative decision denying her application for permanent residence on humanitarian and compassionate grounds. One of Baker's arguments was that she was owed a duty of fairness by the administrative decision maker and that this duty of fairness included the right to an oral hearing. The court rejected this argument, ruling that the unrestricted ability to forward written arguments was sufficient to meet the duty of fairness owed to Ms. Baker. [2]

Baker also argued that the duty of fairness owed to her by the Minister included a duty to provide reasons for any decision made. The court looked to English jurisprudence, in which a common law right to reasons in certain circumstances has developed in the case law. [3] The court found that it would be unfair for the Minister not to provide written reasons for refusing an application in a case such as this where the decision has such significance for the individual and where there is a statutory right of review or appeal of the decision. [4] The court allowed some flexibility in what constitutes reasons, and in this case allowed the notes given by the subordinate officer to the decision-maker to be treated as the reasons for the decision.

Baker further argued that the duty of fairness owed her by the Minister meant that the decision-makers should be free from any "reasonable apprehension of bias". The court concurred and found on the facts that there was a "reasonable apprehension of bias" in the case of the immigration officer who wrote the notes on the file that were subsequently considered by the court to be the reason for the decision. [5]

Substantive review

Baker repudiates the dichotomy which previously existed in the case law between discretionary and non-discretionary decisions. Instead, the court argued that there is great "difficulty in making rigid classifications between discretionary and non-discretionary decisions". [6]

See also

Related Research Articles

In Canadian and New Zealand law, fundamental justice is the fairness underlying the administration of justice and its operation. The principles of fundamental justice are specific legal principles that command "significant societal consensus" as "fundamental to the way in which the legal system ought fairly to operate", per R v Malmo-Levine. These principles may stipulate basic procedural rights afforded to anyone facing an adjudicative process or procedure that affects fundamental rights and freedoms, and certain substantive standards related to the rule of law that regulate the actions of the state.

<span class="mw-page-title-main">Natural justice</span> Concept in UK law

In English law, natural justice is technical terminology for the rule against bias and the right to a fair hearing. While the term natural justice is often retained as a general concept, it has largely been replaced and extended by the general "duty to act fairly".

Claire L'Heureux-Dubé is a retired Canadian judge who served as a puisne justice on the Supreme Court of Canada from 1987 to 2002. She was the first woman from Quebec and the second woman appointed to this position, after Bertha Wilson. Previously, she had been one of the first woman lawyers to handle divorce cases, and was the first woman appointed as a judge to the Quebec Superior Court and the Quebec Court of Appeal.

In law, the standard of review is the amount of deference given by one court in reviewing a decision of a lower court or tribunal. A low standard of review means that the decision under review will be varied or overturned if the reviewing court considers there is any error at all in the lower court's decision. A high standard of review means that deference is accorded to the decision under review, so that it will not be disturbed just because the reviewing court might have decided the matter differently; it will be varied only if the higher court considers the decision to have obvious error. The standard of review may be set by statute or precedent. In the United States, "standard of review" also has a separate meaning concerning the level of deference the judiciary gives to Congress when ruling on the constitutionality of legislation.

<i>Suresh v Canada (Minister of Citizenship and Immigration)</i> Supreme Court of Canada case

Suresh v Canada (Minister of Citizenship and Immigration) is a leading decision of the Supreme Court of Canada in the areas of constitutional law and administrative law. The Court held that, under the Canadian Charter of Rights and Freedoms, in most circumstances the government cannot deport someone to a country where they risk being tortured, but refugee claimants can be deported to their homelands if they are a serious security risk to Canadians.

<span class="mw-page-title-main">Canadian administrative law</span> Law governing the government agencies of Canada

Canadian administrative law is the body of law that addresses the actions and operations of governments and governmental agencies in Canada. That is, the law concerns the manner in which courts can review the decisions of administrative decision makers such as a board, tribunal, commission, agency, or Crown minister, while exercising ministerial discretion.

<i>Knight v Indian Head School Division No 19</i> Supreme Court of Canada case

Knight v Indian Head School Division No 19, [1990] 1 S.C.R. 653 is a leading decision of the Supreme Court of Canada on procedural fairness in Canadian administrative law. The Court created a threshold test to determine whether an administrative process invoked a common law duty of fairness based on the nature of the decision, relationship between the parties, and the effect on the individual claimant.

<i>Dunsmuir v New Brunswick</i> Canadian Supreme Court case

Dunsmuir v New Brunswick, 2008 SCC 9, [2008] 1 SCR 190 was, prior to Canada v Vavilov, the leading Supreme Court of Canada decision on the topic of substantive review and standards of review. Dunsmuir is notable for combining the reasonableness (simpliciter) and the patent unreasonableness standards of review into a single reasonableness standard.

<i>Canada (Minister of Citizenship and Immigration) v Khosa</i> Supreme Court of Canada case

Canada v. Khosa, 2009 SCC 12, is a leading Supreme Court of Canada decision in Canadian administrative law.

<i>Congrégation des témoins de Jéhovah de St-Jérôme-Lafontaine v Lafontaine (Village of)</i> Supreme Court of Canada case

Congrégation des témoins de Jéhovah de St-Jérôme-Lafontaine v Lafontaine , 2004 SCC 48, is a leading Supreme Court of Canada decision in Canadian administrative law. The case applied the Baker framework for analysing the duty of fairness owed by an administrative decision-maker to a zoning request made to a municipality and found that the municipal government owed a duty of procedural fairness to the applicant in the way that it assessed and responded to their rezoning application.

Wednesbury unreasonableness is a ground of judicial review in Singapore administrative law. A governmental decision that is Wednesbury-unreasonable may be quashed by the High Court. This type of unreasonableness of public body decisions was laid down in the English case of Associated Provincial Picture Houses v. Wednesbury Corporation (1947), where it was said that a public authority acts unreasonably when a decision it makes is "so absurd that no sensible person could ever dream that it lay within the powers of the authority".

<span class="mw-page-title-main">Doctrine of bias in Singapore law</span> Principle of appellate law in Singapore

Bias is one of the grounds of judicial review in Singapore administrative law which a person can rely upon to challenge the judgment of a court or tribunal, or a public authority's action or decision. There are three forms of bias, namely, actual, imputed and apparent bias.

<span class="mw-page-title-main">Legitimate expectation in Singapore law</span> Singapore legal doctrine allowing judicial review

The doctrine of legitimate expectation in Singapore protects both procedural and substantive rights. In administrative law, a legitimate expectation generally arises when there has been a representation of a certain outcome by the public authorities to an individual. To derogate from the representation may amount to an abuse of power or unfairness. The doctrine of legitimate expectation as a ground to quash decisions of public authorities has been firmly established by the English courts. Thus, where a public authority has made a representation to an individual who would be affected by a decision by the authority, the individual has a legitimate expectation to have his or her views heard before the decision is taken. Alternatively, an individual may also have a legitimate expectation to a substantive right. The recognition of substantive legitimate expectations is somewhat controversial as it requires a balancing of the requirements of fairness against the reasons for any change in the authority's policy. This suggests the adoption of a free-standing proportionality approach, which has been said not to apply in administrative law.

<span class="mw-page-title-main">Precedent fact errors in Singapore law</span> Singaporean legal doctrine

Errors as to precedent facts, sometimes called jurisdictional facts, in Singapore administrative law are errors committed by public authorities concerning facts that must objectively exist or not exist before the authorities have the power to take actions or make decisions under legislation. If an error concerning a precedent fact is made, the statutory power has not been exercised lawfully and may be quashed by the High Court if judicial review is applied for by an aggrieved person. The willingness of the Court to review such errors of fact is an exception to the general rule that the Court only reviews errors of law.

<span class="mw-page-title-main">Administrative law in Singapore</span> Law of Singapores government agencies

Administrative law in Singapore is a branch of public law that is concerned with the control of governmental powers as exercised through its various administrative agencies. Administrative law requires administrators – ministers, civil servants and public authorities – to act fairly, reasonably and in accordance with the law. Singapore administrative law is largely based on English administrative law, which the nation inherited at independence in 1965.

Fettering of discretion by a public authority is one of the grounds of judicial review in Singapore administrative law. It is regarded as a form of illegality. An applicant may challenge a decision by an authority on the basis that it has either rigidly adhered to a policy it has formulated, or has wrongfully delegated the exercise of its statutory powers to another body. If the High Court finds that a decision-maker has fettered its discretion, it may hold the decision to be ultra vires – beyond the decision-maker's powers – and grant the applicant a suitable remedy such as a quashing order to invalidate the decision.

<i>Newfoundland Telephone Co v Newfoundland (Board of Commissioners of Public Utilities)</i> Supreme Court of Canada case

Newfoundland Telephone Co v Newfoundland (Board of Commissioners of Public Utilities), [1992] 1 SCR 623 is a Canadian administrative law case decided by the Supreme Court of Canada concerning the reasonable apprehension of bias.

<i>Canadian Union of Public Employees v Ontario (Minister of Labour)</i> Supreme Court of Canada case

Canadian Union of Public Employees v Ontario (Minister of Labour), 2003 SCC 29, is a leading Supreme Court of Canada decision on arbitration and bias in administrative law. The court held that it was patently unreasonable for the Minister of Labour to appoint retired judges as arbitrators in labour disputes without considering their expertise in labour relations under the Hospital Labour Disputes Arbitrations Act.

In Canada, judicial review is the process that allows courts to supervise administrative tribunals' exercise of their statutory powers. Judicial review of administrative action is only available for decisions made by a governmental or quasi-governmental authority. The process allows individuals to challenge state actions, and ensures that decisions made by administrative tribunals follow the rule of law. The practice is meant to ensure that powers delegated by government to boards and tribunals are not abused, and offers legal recourse when that power is misused, or the law is misapplied. Judicial review is meant to be a last resort for those seeking to redress a decision of an administrative decision maker.

The idea of ministerial discretion, when employed in Canadian statute law, means the power of a Crown minister to vary or alter the decisions of their bureaucrats, one of their Committees, or one of their Boards. The idea derives from the laws of the United Kingdom, of which Canada, under the rubric of British North America, once was part. The term needs to be written into the statute, as for example in section 51 of the Canadian Oil and Gas Operations Act:

The Governor in Council may at any time, in his discretion, either on petition of any interested person or of his own motion, vary or rescind any decision or order of the Committee made under this Act, whether the order is made between parties or otherwise and any order that the Governor in Council makes with respect thereto becomes a decision or order of the Committee and, subject to section 52, is binding on the Committee and on all parties.

References

  1. [1999] 2 SCR 817 at para 7.
  2. Ibid at para 34.
  3. Ibid at para 41.
  4. Ibid at para 43.
  5. Ibid at para 48.
  6. Ibid at para 55.