The law of public inquiries in Canada / Simon Ruel.
2010
KE4765 .R84 2010 (Map It)
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Details
Author
Title
The law of public inquiries in Canada / Simon Ruel.
Published
Toronto, Ont. : Carswell, [2010]
Copyright
©2010
Call Number
KE4765 .R84 2010
ISBN
9780779822263
0779822269
0779822269
Description
xxxviii, 294 pages ; 24 cm
System Control No.
(OCoLC)645218549
Bibliography, etc. Note
Includes bibliographical references and index.
Record Appears in
Table of Contents
Table Of Cases
xiii
Preface
xxiii
Introduction
xxv
Brief history of public inquiries
xxv
The significance of public inquiries in Canada
xxvi
Issues concerning the conduct of public inquiries
xxviii
Focus and structure of this book
xxix
New Legislation - Ontario Public Inquiries Act, 2009
xxxiii
ch. 1
Creation Of Public Inquiries
1
A.
Legal Authorities
1
B.
Policy Decision to Create a Public Inquiry
2
1.
Functions and Benefits of Public Inquiries
2
2.
The Proper Vehicle and the Alternatives to Public Inquiries
4
C.
Types of Inquiries
6
1.
Policy Inquiries
6
2.
Investigative Inquiries
7
3.
Mixed Investigative and Policy Inquiries
7
4.
Departmental Investigations
8
5.
Healing and Reconciliation Inquiries
8
D.
Appointment of a Commission of Inquiry
9
1.
Enabling Legislation
9
2.
Special Law
10
3.
Identification of Misconduct or Systemic Review
10
4.
Ongoing or Expected Criminal Investigations or Proceedings
12
5.
Jurisdictional Issues
13
6.
Selection of Commissioners of Inquiry
13
E.
Terms of Reference
15
1.
Drafting of the Terms of Reference
15
2.
Consultations, e.g. with the Prospective Commissioner
16
3.
Timing
17
4.
Particularity
17
5.
Commissioner Recommending Amendments to the Terms of Reference
18
6.
Interpretation of the Terms of Reference
19
F.
Legal Nature of Public Inquiries
20
1.
Advisory Bodies Appointed by Governments
20
2.
Investigative and Advisory Independence Within the Scope of the Terms of Reference
21
3.
Immunities and Privileges Protecting the Independence of Commissions of Inquiry
22
4.
Access to Information
23
5.
Financial Status of Commissions of Inquiry
24
ch. 2
Powers Of Public Inquiries
25
A.
Investigative Powers
25
1.
Power to Manage the Conduct of the Inquiry and the Procedure to be Followed - The Rules of Procedure and Practice
26
2.
Summons Power
32
(a).
Statutory authorities and conditions precedent
32
(b).
Compulsion of Ministers or Crown servants
33
(c).
Compulsion of members of the judiciary
35
(d).
Compulsion of members of the legislative bodies
36
(e).
Payment of witness expenses and allowances
36
(f).
Interprovincial summonses
37
(g).
International issues
39
(h).
Enforcement of summonses
39
(i).
Witness immunities
41
3.
Powers to Manage the Administration of Evidence
41
4.
Power to Inspect Premises
41
5.
Power to Search with Warrants
42
6.
Power to Punish for Contempt
42
(a).
Statutory authorities
42
(b).
In facie and ex facie contempt
43
(c).
Specificity of the charge of contempt
44
(d).
Civil and criminal contempt
44
(e).
Sentencing considerations - public inquiries
45
B.
Appointment of Multiple Commissioners and Exercise of Powers
46
ch. 3
Structure: Roles And Responsibilities
47
A.
Status and Role of the Commissioner
47
B.
Status and Role of Commission Counsel
48
1.
Appointment of Commission Counsel
48
2.
Advisory Role of Commission Counsel
50
3.
Preliminary Investigations
50
4.
Communications
50
5.
Presentation of the Evidence and Cross-examination
51
6.
Commission Counsel Making Submissions
53
7.
Commission Counsel's Involvement in Report Writing
53
C.
Standing - The Parties Before the Inquiry
55
1.
Substantial and Direct Interest - The Participants
56
a).
Authorities
56
b).
The grant of participant status
56
c).
Rights and obligations of participants
59
2.
Persons with Clearly Ascertainable Interests or Genuine Concern, and Particular Perspective, Knowledge, Experience or Expertise - The Interveners
60
a).
The grant of intervener status
60
b).
Rights of interveners
62
D.
The Role of Counsel for Parties with Standing or Witnesses
62
E.
The Funding of Participants and Interveners
63
ch. 4
Inquiry Process
67
A.
Guiding Principles
67
B.
Understanding the Problem and Issues
69
C.
The Collection of Documents and Information
70
D.
Interviews of Witnesses
72
E.
Disclosure of Information and Documents to Parties with Standing Prior to Hearings
72
1.
Documents Relevant to the Mandate
72
2.
Summaries or Statements of Anticipated Evidence or Will Says
73
F.
Rules of Evidence
73
1.
Admissibility of Evidence - Relevance
73
2.
Privileges and Immunities
75
a).
Jurisdiction of commissions of inquiries to determine privilege claims
75
b).
Waiver
76
c).
Categories of privilege
77
(1).
Solicitor-client and litigation privilege
77
(2).
Police informants
79
(3).
Parliamentary privilege
79
(4).
Cabinet privilege
81
(5).
Other public interest privileges
82
(6).
International relations, national defence, national security
83
(7).
Confidential communications
85
(8).
Crown prosecutorial immunity
86
(9).
Deemed undertaking rule
88
3.
Statutory Promises of Confidentiality
88
G.
Opening Statements and Setting Out the Context
89
H.
Presentation of Evidence
90
I.
Final Submissions
91
ch. 5
Public Nature Of Inquiries
93
A.
Public Inquiries - The Importance of Openness
93
B.
The Pitfalls of Openness in Public Inquiry Context
94
C.
The Role of the Media
96
D.
Whether the Open Court Principle Applies to Public Inquiries
97
E.
Limitations to Publicity and the Freedom of the Press
98
1.
Power to Issue Publication Bans and Other Confidentiality Orders
98
2.
Advance Notice to the Media
99
3.
Test Guiding Discretion of Commissioners to Limit Publicity
100
4.
Circumstances when Publicity may be Curtailed
101
5.
Types of Confidentiality Orders
104
ch. 6
Constitutional Jurisdiction And Limitations
105
A.
Division of Powers - "Pith and Substance" of Commissions of Inquiry
105
1.
Review of the Case Law
105
2.
Core Principles - Constitutional Jurisdiction of Commissions of Inquiry
114
B.
Inter-jurisdictional Immunity
115
C.
Judicial Independence
116
ch. 7
Public Inquiries, Interface With Criminal Or Civil Proceedings
119
A.
General Principles
119
B.
Consequences of Public Inquiries Running Concurrently with Criminal Investigations or Proceedings, or Impact on Subsequent Criminal Investigations or Proceedings
121
1.
Phillips v. Nova Scotia (Commission of Inquiry into the Westray Mine Tragedy)
121
2.
Other Legislative Protections and Terms of Reference
125
C.
Consequences of Public Inquiries Running Concurrently with Civil Proceedings, or Impact on Subsequent Civil Proceedings
126
1.
Concurrent Public Inquiry and Civil Proceedings or
126
Subsequent Civil Proceedings
126
2.
Facts Revealed at an Inquiry
126
3.
Testimony
126
4.
Documentary Evidence
127
5.
Inquiry Report
128
ch. 8
The Rules Of Fairness And Public Inquiries
131
A.
Requirements of Fairness and Public Inquiries
131
B.
Duty to Act Impartially
135
1.
Determining the Test of Impartiality Applicable to Commissions of Inquiry
135
2.
Public Comments and Bias
139
3.
Issuance of Draft Report
140
C.
Notices of Alleged Misconduct
140
1.
Issuer of Notices of Alleged Misconduct
142
2.
Definition of Misconduct
142
3.
Issuance of Notices of Alleged Misconduct
144
4.
Content of Notices of Alleged Misconduct and Level of Details Required
144
5.
Timing of Issuance
146
6.
Confidentiality of Notices
148
D.
Rights of Those that may be Subject to Findings of Misconduct
149
1.
Statutory Rights
149
2.
Right to Counsel
149
3.
Standing
150
4.
Right to Respond
150
5.
Right to Information and Documents
151
6.
Right to Cross-examination
152
E.
Other Types of Notices
155
ch. 9
Reporting Stage
157
A.
Preparation of the Factual Report
157
1.
Report Writing Process
157
2.
Systemic, Institutional or Organizational Failures
158
3.
Quality of Evidence Required to Make Findings
158
4.
Consequences of Refusal to Appear Before a Commission of Inquiry
159
5.
Hindsight
159
6.
Findings of Misconduct - Core Principles
160
B.
Mixed Factual and Policy Inquiries - Considerations
161
C.
Recommendations
162
D.
Delivery of Inquiry Reports
163
ch. 10
Judicial Review
165
A.
The Availability of Judicial Review
165
B.
Standard of Review
165
1.
Privative Clauses
165
2.
Determining the Applicable Standard of Review
166
3.
Breach of a Duty of Procedural Fairness
169
C.
Stated Cases
170
D.
Judicial Review of Administrative Actions and Interlocutory Rulings in the Course of an Inquiry
171
E.
Evidentiary Rulings and Relevance
173
F.
Judicial Review of a Commission of Inquiry's Final Report or Findings
173
1.
General
173
2.
Factual Findings
174
Conclusion
177
LEGISLATION AND REGULATIONS
183
Federal Inquiries Act
185
Newfoundland and Labrador Public Inquiries Act, 2006
189
Prince Edward Island Public Inquiries Act
199
Nova Scotia Public Inquiries Act
201
New Brunswick Inquiries Act
203
Procedure Order - Inquiries Act
207
Forms Regulation - Inquiries Act
209
Quebec - An Act respecting public inquiry commissions
211
Regulation respecting reports of public inquiry commissions
215
Ontario Public Inquiries Act
217
Ontario Public Inquires Act, 2009
225
The Manitoba Evidence Act (Excerpts)
255
Saskatchewan The Public Inquiries Act
261
Alberta Public Inquiries Act
263
British Columbia Public Inquiry Act, 2007
267
Yukon Territory Public Inquiries Act
281
Northwest Territories Public Inquiries Act
283
Nunavut Public Inquiries Act
287
Index
291