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Administrative Law
PRINCIPLES AND ADVOCACY
Third Edition
John Swaigen
Preface . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . xiii
About the Author . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . xvii
About the Contributor . . . . . . . . . . . . . . . . . . . . . . . . . . . xviii
v
© 2017 Emond Montgomery Publications. All Rights Reserved.
In 1951, when Robert Reid, later Justice Reid of Ontario’s Divisional Court, was
asked to teach administrative law at Osgoode Hall Law School, he discovered that
there were no Canadian textbooks on the subject to assist him. Administrative law
did not even exist as a heading in Canadian legal encyclopedias. In his foreword to
a text on Canadian administrative tribunals, Justice Reid tells how he tried with
limited success to scrounge advice and notes that would help him put together a
course on administrative law.
Today, 65 years later, there are numerous texts on administrative law. There are prac-
tical guides for lawyers, tribunal members, and even expert witnesses. There are
scholarly treatises. There are texts on specific issues such as bias, administrative inves-
tigations, and delegated legislation. But to my knowledge, until I wrote this book,
there was still not one text designed specifically for students in institutions of higher
learning (other than law faculties). University and college teachers generally used
texts written for other purposes, supplemented by photocopies of materials they had
collected. There was, and still is, very little that addresses both theory and practice—
and that does so in plain language.
This book attempts to fill this gap. It is designed primarily for students who are
studying to be paralegals, community legal workers, or law clerks, and for students
who will work for government departments, regulatory agencies, or tribunals. It
describes the underlying principles of administrative law and the variety of applica-
tions of those principles in a way that engages students and facilitates learning.
It also contains practical advice on dealing effectively with departments, agencies,
and tribunals.
The structure of this edition largely reflects that of the second, which was revised
to reflect the competencies for paralegals identified by the Law Society of Upper
Canada, and the Law Society’s syllabus for community college courses for paralegals
when the Law Society began to regulate paralegals in 2006.
With the help of Jasteena Dhillon, an experienced professor of administrative
law, the text has been revised and expanded to improve its pedagogical features,
such as the review questions, exercises, fact scenarios, and cases to consider at the
end of each chapter.
This edition also reflects the substantial body of Supreme Court administrative
law, Charter, and human rights decisions that have been made since the second edi-
tion was published, including decisions that have: clarified the standard of review of
tribunal decisions (Alberta (Information and Privacy Commissioner)); clarified the
scope of procedural fairness (Newfoundland and Labrador Nurses’ Union); clarified
the relationship between administrative law and the Charter (Doré and Harkat);
changed the criteria for granting public interest standing in Charter cases (Downtown
xiii
© 2017 Emond Montgomery Publications. All Rights Reserved.
East Side); addressed the ability of tribunals to decide constitutional questions (Con-
way); affirmed the availability of damages as a remedy for violations of the Charter
(Ward); reconfirmed the test for validity of delegated legislation (Katz Group Canada
Inc); addressed the application of section 11 of the Charter to administrative proceed-
ings (Guindon); interpreted section 15 of the Charter (Law and Withler); and clarified
the jurisdiction of bodies other than human rights tribunals to hear human rights
arguments (Figliola).
The text has also been revised to address some subjects for the first time or in
greater depth, such as the functus officio doctrine, legitimate expectations (Mavi),
tribunal governance and “clustering” (Ontario’s Adjudicative Tribunals Account-
ability, Governance and Appointments Act, 2009), delegated legislation, public inter-
est standing, the duty to consult First Nations under section 35 of the Constitution,
whether the Charter imposes positive obligations on government, and the mandate
and procedures of the Immigration and Refugee Board.
Like the first two editions, this text deals with both theory and practice. It ad-
dresses issues ranging from the very concrete and specific—for example, how to
conduct research or lead evidence—to more abstract questions of principles, ethics,
and courtesy. It suggests ways that representatives might carry out these responsibil-
ities fairly, effectively, and efficiently. It also explains the responsibilities of represent-
atives to their clients and to the regulators and tribunals before which they appear, as
well as the obligations of these agencies to parties and their representatives.
The premise of this book is that all administrative departments and agencies are
subject to certain common fundamental premises, yet no two government agencies
are alike. The fact that each agency has been designed to meet a particular need
makes it a challenge to determine in any specific case how the principles of admin-
istrative law apply to that agency.
Given this variety in administrative bodies and tribunals and their procedures, a
“one size fits all” approach to describing and prescribing appropriate behaviour for
advocates and government agents will fit no one perfectly. I hope, however, that the
book’s double approach to the practice and theory of administrative law will fit most
well enough.
Acknowledgments
Jasteena Dhillon is responsible for the improved pedagogical features (review ques-
tions, exercises, fact scenarios, and key cases) in this edition.
My thanks to Andy Anstett, Michael Bossin, and Gary Yee, who reviewed my
descriptions of the regulatory agencies and tribunals with which they are or have
been involved, and provided me with comments and insights into the workings of
those entities.
I also want to reiterate my thanks to several chairs, vice-chairs, and members of
tribunals, tribunal staff members, staff and members of regulatory agencies, tribunal
counsel, and administrative law instructors who provided helpful advice and com-
ments on drafts of the first and second editions: Andy Anstett, Bernie Aron, Judith
Goldstein, Donald Hale, Katherine Laird, David Lampert, Genevieve Leslie, Alan
Levy, and Gary Yee.
Thanks also to the reviewers, Denise Labelle at Mohawk College, Gurpreet Gill
at Conestoga College, and Deirdre Way at Loyalist College, for their helpful
feedback.
I owe a debt of gratitude to Lindsay Sutherland and Heather Gough for oversee-
ing and editing this edition, as well as to Cindy Fujimoto for copy editing, Rohini
Herbert for proofreading, and Paula Pike for indexing. Thanks also to Paul Emond
for his personal involvement in smoothing the way for this edition.
I remain grateful to the staff at Emond Publishing who brought the earlier edi-
tions to fruition, in particular Peggy Buchan, Sarah Gleadow, Jim Lyons, Christine
Purden, and Paula Pike.
Finally, I would be pleased to receive suggestions for improvement from both
students and teachers. Comments can be sent to my attention at help@emond.ca.
John Swaigen
January 2016
John Swaigen (BA, LLB, LLM) is a lawyer and author in Ontario, Canada. He re-
ceived a BA from the University of Toronto, and an LLB and LLM from Osgoode
Law School. Since being called to the Ontario bar in 1974, he has served as director
of quality assurance at the Ontario Legal Aid Plan, chair of Ontario’s Environmental
Appeal Board, research associate at the Institute for Environmental Law and Policy,
counsel for the Municipality of Metropolitan Toronto and the Ontario Ministry of
the Environment, general counsel to the Canadian Environmental Law Association,
and legal counsel in the Office of Information and Privacy Commissioner/Ontario.
Swaigen has served on several boards of directors, including the Sierra Legal De-
fence Fund and the Canadian Environmental Defence Fund. Since 2011 he has been
a staff lawyer with Ecojustice, a national charitable organization dedicated to de-
fending Canadians’ rights to a healthy environment. He has been a member of the
Complaints Committee of Professional Engineers Ontario since 2013. Swaigen has
written books and articles on environmental law.
xvii
© 2017 Emond Montgomery Publications. All Rights Reserved.
Jasteena Dhillon (BA, JD, LLM) is professor of law at Humber College and adjunct
professor in the Faculty of Law, University of Windsor. She graduated from the
University of Toronto in 1990 and from the University of Windsor Law School in
1995. She received her LLM from Leiden University in the Netherlands. She was an
associate fellow at Harvard Kennedy School’s Carr Center for Human Rights Policy,
where she focused on informal justice and rights in tribal areas. She now teaches
international law at the Faculty of Law in Windsor and administrative law at Hum-
ber College Institute of Technology and Advanced Learning.
Dhillon began her career as a community advocate in legal clinics for those un-
able to access government services. After completing law school she worked as a
lawyer with the Office of the Children’s Lawyer representing children in welfare and
family/civil matters. Her work with vulnerable communities in Ontario and Canada
has earned her recognition from her peers in the movement. Dhillon also provides
training and advice to government bodies, including the Canadian Armed Forces,
Public Safety Canada, and the Privy Council Office. She acts as a consultant on legal,
administrative, and policy issues.
She has worked internationally as a legal and development expert in conflict,
post-conflict, and transitional crisis areas around the world, and for the United
Nations (UN), the North Atlantic Treaty Organization (NATO), the Organization
for Security and Co-operation in Europe (OSCE), the International Catholic Migra-
tion Commission (ICMC), and the Norwegian Refugee Council (NRC).
xviii
© 2017 Emond Montgomery Publications. All Rights Reserved.
3
© 2017 Emond Montgomery Publications. All Rights Reserved.
— Emme.
— Kuulehan Hilma!
— Hyvästi!
Mitenkähän?
XIV.
Heinäkuun 18 p.
Uuden Ajan yhtiökokous oli nimittäin tätä ennen pidetty ja oli ollut
hyvin kiivas. Granberg oli hankkinut osakkeenomistajilta paljon
valtakirjoja ja koetellut puheillaan vaikuttaa läsnäoleviin. Mutta
saman olivat toisetkin tehneet, ja Asplund oli Helanderin neuvoa
noudattaen ostellutkin osakkeita. Granbergilla olivat valtakirjat
suurimmaksi osaksi itsellään, mutta toisella puolen olivat ne jaetut
useammalle eri henkilölle ja tulivat siten äänestyksessä
täydellisemmin vaikuttamaan kuin Granbergin valtakirjat, joista
sääntöjen määräämän äänestysmäärän rajoituksen kautta osa jäi
vaikutuksettomiksi. Tulos johtokunnan vaalista oli, että kaikki entiset,
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jäsenyyttä ja läksi kokouksesta heti vaalin jälkeen uhkamielisen
näköisenä. Täti Löfberg oli voittaneen listan puolella, mutta sitten
melkein pahoillaan kun se voitti.
Jäin yksin konttoriin. Nyt oli siis kaikki lopullisesti ratkaistu. Mutta
entisistä valmistuksista ja uhkaavista pilvistä huolimatta oli tämä
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minä päättelin olla kaikkeen sovitteluun taipumaton, vakuutettuna
heidän olevan sillä hetkellä johtoon ryhtymään yhtä
valmistumattomia kuin minä illalla, työni lopetettua olin tietämätön
siitä etten aamulla siihen enää palajaisi.
Heinäkuun 20 p.
— Se olisi?
— Minäkin.
Hän naurahti.