{"id":9722,"date":"2015-12-15T08:29:00","date_gmt":"2015-12-15T16:29:00","guid":{"rendered":"https:\/\/heronlaw.ca\/unpacking-the-legal-phrase-fettering-discretion\/"},"modified":"2015-12-15T08:29:00","modified_gmt":"2015-12-15T16:29:00","slug":"unpacking-the-legal-phrase-fettering-discretion","status":"publish","type":"post","link":"https:\/\/heronlaw.ca\/zh-hans\/unpacking-the-legal-phrase-fettering-discretion\/","title":{"rendered":"Unpacking the Legal Phrase \u201cFettering Discretion\u201d"},"content":{"rendered":"\t\t
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The phrase \u201cfettering discretion\u201d found its way into two important decisions released today.<\/p>\n

In\u00a0Trinity Western University v. The Law Society of British Columbia\u00a0<\/i>2015 BCSC 2326<\/a>\u00a0(\u201cTWU-LSBC<\/em>\u201c), The Hon. Chief Justice Hinkson found that the Law Society of British Columbia Benchers incorrectly fettered their discretion by binding themselves to a \u2018fixed blanket policy set by LSBC members in the form of a non-binding vote (at para 120).<\/p>\n

In\u00a0Kanthasamy v. Canada (Citizenship and Immigration)\u00a0<\/em>2015 SCC 61<\/a>\u00a0 (\u201cKanthasamy\u201d\u00a0<\/em>) the majority decision (penned by Justice Abella) found that the Immigration Officer had unreasonably fettered her discretion \u00a0by avoiding the \u201crequisite analysis\u201d of s.25(1) of the\u00a0Immigration and Refugee Protection Act<\/em>\u00a0(\u201cIRPA\u201d).\u00a0<\/em>The Majority found that the Officer\u2019s \u00a0adoption of the\u00a0Citizenship and Immigration Guidelines of\u00a0\u201cunusual and deserved or disproportionate hardship\u201d as a threshold for humanitarian and compassionate relief, without a proper assessment of best interest of the child, was an\u00a0unreasonable application of IRPA s.25(1).<\/p>\n

The questions to be asked from this are:<\/span><\/p>\n

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  1. What does it mean for an officer to fetter their discretion?<\/li>\n
  2. What is the correct standard of review (or is it case dependent)?<\/li>\n<\/ol>\n

    Definition<\/b><\/p>\n

    In\u00a0TWU-LSBC,\u00a0<\/em>Hinkson C.J. does quite a thorough job of setting out the law of fettering discretion in British Columbia. He writes (emphasis added<\/span>):<\/p>\n

    [97] Fettering of discretion occurs when, rather than exercising its discretion to decide the individual matter before it, an administrative body binds itself to policy or to the views of others: Hospital Employees Union, Local 180 v. Peace Arch District Hospital (1989), 35 B.C.L.R. (2d) 64 (C.A.).\u00a0Although an administrative decisionmaker may properly be influenced by policy considerations and other factors<\/span>, he or she must put his or her mind to the specific circumstances of the case and not focus blindly on a particular policy to the exclusion of other relevant factors<\/span>:\u00a0Halfway River First Nation v. British Columbia (Ministry of Forests) (1999), 129 B.C.A.C. 32 at para. 62 [Halfway River].<\/p>\n

    Hinkson CJ expands on this definition in paragraph 114 of his decision and writes (emphasis added<\/span>):<\/p>\n

    [114] As discussed in the standard of review analysis above, fettering of discretion occurs when a\u00a0decision-maker does not genuinely exercise independent judgment in a matter<\/span>.\u00a0This can occur, for example, if\u00a0the decision-maker binds itself to a particular policy or another person\u2019s opinion<\/span>.\u00a0If a decision-maker fetters its discretion by policy, contract, or plebiscite, this can also amount to an abuse of discretion. Similarly, it is an abuse of discretion for a decision-maker to\u00a0permit others to dictate its judgment<\/span>.\u00a0As Mr. Justice Gonthier said for the Court in Therrien (Re), 2001 SCC 35 at para. 93:<\/p>\n<\/figure>\n\t\t\t\t\t\t<\/div>\n\t\t\t\t<\/div>\n\t\t\t\t

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    [93] It is settled law that a body to which a power is assigned \u00a0 \u00a0 \u00a0 under \u00a0its enabling legislation must exercise that power itself and may not delegate it to one of its members or to a minority of those members without the express or implicit authority of the legislation, in accordance with the maxim hallowed by long use in the courts, delegatus non potest delegare: Peralta v. Ontario, [1988] 2 S.C.R. 1045, aff\u2019g (1985), 49 O.R. (2d) 705\u2026<\/em><\/p>\t\t\t\t\t\t<\/div>\n\t\t\t\t<\/div>\n\t\t\t\t

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    [115] While Gonthier J. referred to a minority of the members of a body, I see no reason not to apply the same reasoning even to a majority of the members of a body like the LSBC whose elected or appointed representatives are assigned a power that requires the weighing of factors that the majority have not weighed.<\/p>\n

    This definition of \u2018fettering discretion\u2019 is mirrored in the Majority\u2019s decision in\u00a0Kanthasamy\u00a0<\/em>at para 32, where the court discusses the Officer\u2019s use of the\u00a0Guidelines on Humanitarian and Compassionate Grounds provided by CIC<\/a>. The Majority writes\u00a0(emphasis added<\/span>):<\/p>\n

    [32] There is no doubt, as this Court has recognized, that the Guidelines are useful in indicating what constitutes a reasonable interpretation of a given provision of the\u00a0Immigration and Refugee Protection Act\u00a0<\/span><\/a><\/i>:\u00a0Agraira<\/i>,\u00a0<\/i>at para. 85.\u00a0<\/b>But as the Guidelines themselves acknowledge, they are \u201cnot legally binding\u201d and are \u201cnot intended to be either exhaustive or restrictive\u201d:\u00a0Inland Processing<\/i>, s. 5.\u00a0\u00a0 Officers\u00a0can, in other words, consider the Guidelines in the exercise of their\u00a0s. 25(1)\u00a0<\/span><\/a>\u00a0discretion, but should turn \u201c[their] mind[s] to the specific circumstances of the case\u201d<\/span>: Donald J. M. Brown and The Honourable John M. Evans,Judicial Review of Administrative Action in Canada<\/i>\u00a0(2014), at p. 12-45. They\u00a0should not fetter their discretion by treating these informal Guidelines as if they were mandatory requirements<\/span>\u00a0that limit the equitable humanitarian and compassionate discretion granted by\u00a0s. 25(1)\u00a0<\/span><\/a>:\u00a0<\/i>see\u00a0Maple Lodge Farms Ltd. v. Canada<\/i>,\u00a0<\/i>[1982] 2 S.C.R. 2, at p. 5;\u00a0Ha v. Canada (Minister of Citizenship and Immigration)<\/i>, [2004] 3 F.C.R. 195 (C.A.), at para. 71.<\/p>\t\t\t\t\t\t<\/div>\n\t\t\t\t<\/div>\n\t\t\t\t

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    Standard of Review<\/strong><\/p>\n

    In\u00a0TWU-LSBC,\u00a0<\/em>Hinkson C.J. appears to adopt a standard of review of correctness \u2013 stating that the fettering of discretion is an area where the court owes an administrative decision-maker no deference. Hinkson C.J. writes:<\/p>\n

    [99] As Mr. Justice Finch (as he then was) explained in Halfway River at para. 58, the fettering of discretion is an issue of procedural fairness, which is an area where the court owes an administrative decision-maker no deference:<\/p>\t\t\t\t\t\t<\/div>\n\t\t\t\t<\/div>\n\t\t\t\t

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    [58] The learned chambers judge held that the process followed by the District Manager offended the rules of procedural fairness in four respects:\u00a0he fettered his discretion by applying government policy<\/span>\u2026[.] These are all matters of procedural fairness, and do not go to the substance or merits of the District Manager\u2019s decision. There is, therefore, no element of curial deference owed to that decision by either the chambers judge or by this Court.<\/em><\/p>\t\t\t\t\t\t<\/div>\n\t\t\t\t<\/div>\n\t\t\t\t

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    [44] \u00a0 \u00a0 \u00a0 \u00a0 \u00a0 \u00a0 \u00a0The Federal Court of Appeal refers to one case from this Court to support this point:\u00a0Hilewitz v. Canada (Minister of Citizenship and Immigration)<\/i>, [2005] 2 S.C.R. 706.\u00a0<\/i>This case is not particularly helpful. It was decided before\u00a0Dunsmuir v. New Brunswick<\/i>, [2008] 1 S.C.R. 190, there was no discussion of the impact of a certified question on the issue of standard of review, and the parties asked that correctness be applied: para. 71.\u00a0 In any event, the case law from this Court confirms that certified questions are not decisive of the standard of review:\u00a0Baker<\/i>, at para. 58;\u00a0Chieu v. Canada (Minister of Citizenship and Immigration)<\/i>, [2002] 1 S.C.R. 84, at para. 23. \u00a0As the Court said in\u00a0Baker<\/i>, at para. 12, the certification of a question of general importance may be the \u201ctrigger\u201d by which an appeal is permitted. The subject of the appeal is still the judgment itself, not merely the certified question. The fact that the reviewing judge in this case considered the question to be of general importance is relevant, but not determinative. Despite the presence of a certified question, the appropriate standard of review is reasonableness:\u00a0Baker<\/i>, at para. 62.<\/p>\n

    My Analysis<\/strong><\/p>\n

    I want to bring in another definition of fettering discretion (going way back to the archives here) that I like personally. I found this on a\u00a0Worksafe BC memo d<\/a>ated 20 December 1991 but I think it sets out the law quite clearly (emphasis added):<\/p>\t\t\t\t\t\t<\/div>\n\t\t\t\t<\/div>\n\t\t\t\t

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    \u201cA general principle in administrative law is that administrative bodies must not fetter their discretion. In other words,\u00a0a body entrusted with a discretion must not disable itself from exercising its discretion in individual cases by adopting a fixed rule of policy<\/span>.\u00a0As summarized by Jones and de Villars in Principles of Administrative Law (Vancouver, 1985): \u2026 the existence of discretion implies the absence of a rule dictating the result in each case;\u00a0the essence of discretion is that it can be exercised differently in different cases.<\/span>\u00a0(at p. 137).\u201d<\/em><\/p>\t\t\t\t\t\t<\/div>\n\t\t\t\t<\/div>\n\t\t\t\t

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    I think eventually there will need to be two standards of review for fettering discretion cases. When an officer is fixated on the application of a policy or discretion that is narrower than the written \u00a0law \u2013 I believe that the reasonableness standard should apply. For example, as in\u00a0Cha v. Canada (Minister of Citizenship and Immigration)<\/em>\u00a0[2005] 2 FCR 503, the Officer unreasonably fettered discretion by adopting a narrower approach (not conducting a full analysis) in reaching a decision that legally flowed from the imputed act \u2013 the issuance of an s.44 report and subsequent deportation order.\u00a0\u00a0<\/em>\u00a0However, if the officer is fixated of a policy that is broader than, or even more egregiously, contradictory, to the law I think it becomes an issue of correctness. I think that a blanket relevant\/irrelevant considerations analysis is broad for the purposes of a fettering discretion assessment (see: Gleason J\u2019s judgment in\u00a0Jia v. Canada\u00a0<\/em>2014 FC 596 at para 68).<\/p>\n

    \u00a0<\/p>\n

    Regardless, expect \u201cfettering of discretion\u201d to receive more judicial play in the years to come. I know in the immigration context, several refusals (subject to litigation) are based on discretionary applications of policy and Citizenship and Immigration Canada-generated requirements rather than the plain-language of the law.<\/p>\n

    Corresponding, you will likely see from this (if I were the government) more Ministerial Instructions and Regulations that codify existing policy. The reasonableness standard itself, where as long as balancing and factor consideration was arguably attempted is sufficient, may be enough to defend the decision-maker in those cases.<\/p>\t\t\t\t\t\t<\/div>\n\t\t\t\t<\/div>\n\t\t\t\t

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    Ps. for a great article on \u201cfettering of discretion\u201d in the Canadian administrative law context check out Professor Paul Daly\u2019s 2014 post \u201cFettering of Discretion and the Reasonableness Test\u201d\u00a0here.<\/a>\u00a0<\/em><\/p>\t\t\t\t\t\t<\/div>\n\t\t\t\t<\/div>\n\t\t\t\t\t<\/div>\n\t\t<\/div>\n\t\t\t\t\t\t\t<\/div>\n\t\t<\/section>\n\t\t\t\t\t\t<\/div>\n\t\t\t\t\t<\/div>\n\t\t","protected":false},"excerpt":{"rendered":"

    [93] It is settled law that a body to which a power is […]<\/p>\n","protected":false},"author":4,"featured_media":9723,"comment_status":"open","ping_status":"open","sticky":false,"template":"","format":"standard","meta":[],"categories":[424],"tags":[452],"yoast_head":"\nUnpacking the Legal Phrase \u201cFettering Discretion\u201d - Heron Law Offices<\/title>\n<meta name=\"robots\" content=\"index, follow, max-snippet:-1, max-image-preview:large, max-video-preview:-1\" \/>\n<link rel=\"canonical\" href=\"https:\/\/heronlaw.ca\/zh-hans\/unpacking-the-legal-phrase-fettering-discretion\/\" \/>\n<meta property=\"og:locale\" content=\"zh_CN\" \/>\n<meta property=\"og:type\" content=\"article\" \/>\n<meta property=\"og:title\" content=\"Unpacking the Legal Phrase \u201cFettering Discretion\u201d - Heron Law Offices\" \/>\n<meta property=\"og:description\" content=\"[93] It is settled law that a body to which a power is […]\" \/>\n<meta property=\"og:url\" content=\"https:\/\/heronlaw.ca\/zh-hans\/unpacking-the-legal-phrase-fettering-discretion\/\" \/>\n<meta property=\"og:site_name\" content=\"Heron Law Offices\" \/>\n<meta property=\"article:published_time\" content=\"2015-12-15T16:29:00+00:00\" \/>\n<meta property=\"og:image\" content=\"https:\/\/heronlaw.ca\/wp-content\/uploads\/2021\/07\/Fettering-definition.jpg\" \/>\n<meta name=\"twitter:card\" content=\"summary_large_image\" \/>\n<meta name=\"twitter:label1\" content=\"\u4f5c\u8005\" \/>\n\t<meta name=\"twitter:data1\" content=\"Heron Law Firm\" \/>\n\t<meta name=\"twitter:label2\" content=\"\u9884\u8ba1\u9605\u8bfb\u65f6\u95f4\" \/>\n\t<meta name=\"twitter:data2\" content=\"8\u5206\" \/>\n<script type=\"application\/ld+json\" class=\"yoast-schema-graph\">{\"@context\":\"https:\/\/schema.org\",\"@graph\":[{\"@type\":\"WebSite\",\"@id\":\"https:\/\/heronlaw.ca\/zh-hans\/#website\",\"url\":\"https:\/\/heronlaw.ca\/zh-hans\/\",\"name\":\"Heron Law Offices\",\"description\":\"Lawyers for Migrant Communities\",\"potentialAction\":[{\"@type\":\"SearchAction\",\"target\":{\"@type\":\"EntryPoint\",\"urlTemplate\":\"https:\/\/heronlaw.ca\/zh-hans\/?s={search_term_string}\"},\"query-input\":\"required name=search_term_string\"}],\"inLanguage\":\"zh-CN\"},{\"@type\":\"ImageObject\",\"@id\":\"https:\/\/heronlaw.ca\/zh-hans\/unpacking-the-legal-phrase-fettering-discretion\/#primaryimage\",\"inLanguage\":\"zh-CN\",\"url\":\"https:\/\/heronlaw.ca\/wp-content\/uploads\/2021\/07\/Fettering-definition.jpg\",\"contentUrl\":\"https:\/\/heronlaw.ca\/wp-content\/uploads\/2021\/07\/Fettering-definition.jpg\",\"width\":597,\"height\":315},{\"@type\":\"WebPage\",\"@id\":\"https:\/\/heronlaw.ca\/zh-hans\/unpacking-the-legal-phrase-fettering-discretion\/#webpage\",\"url\":\"https:\/\/heronlaw.ca\/zh-hans\/unpacking-the-legal-phrase-fettering-discretion\/\",\"name\":\"Unpacking the Legal Phrase \\u201cFettering Discretion\\u201d - 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