Ottawa, Ontario, October 26, 2005
PRESENT: THE HONOURABLE MADAM JUSTICE DAWSON
BETWEEN:
MINISTER OF HUMAN RESOURCES DEVELOPMENT
Applicant
and
Respondent
REASONS FOR ORDER AND ORDER
DAWSONJ.
[1] Subsection 83(2.1) of the Canada Pension Plan Act, R.S.C. 1985, c. C-8 ("Act") permits a designated member of the Pension Appeals Board ("Board") to grant leave to appeal to the Board a decision of the Review Tribunal constituted under the Act. Leave is to be sought within 90 days of the communication of the Review Tribunal's decision to the aggrieved party, or within such longer period as a designated member of the Board may allow.
[2] Rules 4 and 5 of the Pension Appeals Board Rules of Procedure (Benefits) C.R.C. c. 390 ("Rules") provide that an application for leave shall contain: the date of the decision of the Review Tribunal, the name of the place at which the decision was rendered and the date on which the decision was communicated to the appellant; the full name and postal address of the appellant; the name of any agent or representative on whom service of documents may be made, and the agent's full postal address; the grounds upon which the appellant relies in order to obtain leave to appeal; and a statement of the allegations of fact, including any reference to statutory provisions, constitutional provisions, and reasons the appellant intends to submit, and documentary evidence the appellant intends to rely on in support of the appeal. Where an extension of time is sought for the purpose of bringing an application for leave, the grounds on which the extension is sought are to be stated. Section 83 of the Act and Rules 4 and 5 are contained in the appendix to these reasons.
[3] Mr. Roy was found not to be disabled by the Review Tribunal in a decision dated December 3, 2002. Mr. Roy did not seek leave to appeal the decision within 90 days of receiving it. Instead, some 18 months later, on June 23, 2004, he wrote to the Board requesting leave to appeal. His request failed to contain all of the information required by the Rules. In its entirety, the leave application stated:
I am writing to ask for leave to appeal the decision of Review Tribunals Decision in 2002. Mainly because the Insurance Company wants to know about a decision. [reproduced as written]
[4] Mr. Roy also provided his social insurance number, date of birth and mailing address.
[5] Mr. Roy later provided further information to the Board by letter dated August 8, 2004:
Review Tribunal date of hearing was November 5, 2002. The decision of the tribunal received Dec 3, 2002. Main reason for requesting for appeal is hasseled by Insurance Company. No new facts surporting appeal. And no new medical information. [reproduced as written]
This information may well have been provided by Mr. Roy in response to a request for further information made by the Board. Missing from Mr. Roy's application was any request for an extension of time for the bringing of his leave application.
[6] On September 17, 2004, a designated member of the Board granted Mr. Roy both an extension of time and leave to appeal the decision of the Review Tribunal to the Board. The Minister of Human Resources Development ("Minister") brings this application for judicial review of that decision.
[7] The Minister's application for judicial review was heard on October 4, 2005. Mr. Roy neither filed responding material to the Minister's application nor appeared at the hearing of the application. After hearing the submissions of counsel for the Minister, the application for judicial review was allowed for reasons to be delivered. These are those reasons.
[8] Subsection 83(1) of the Act confers a discretion to extend the already generous period provided in the Act for the bringing of leave applications. While criteria are not provided in the Act or Rules to govern the exercise of that discretion, as a matter of law such discretion is to be exercised in a principled fashion. This promotes, among other things, fairness and consistency in results, and avoids arbitrary and capricious decision-making.
[9] As for the principles to be applied when considering a request for an extension of time under subsection 83(1) of the Act, in Canada (Minister of Human Resources Development) v. Gattellaro, [2005] F.C.J. No. 1106, my colleague Madam Justice Snider considered the following criteria to be appropriate and applicable; citing Grewal v. Canada (Minister of Employment and Immigration), [1985] 2 F.C. 263 (C.A.) and Baksa v. Neis (c.o.b. Brookside Transport), [2002] F.C.J. No. 832 (C.A.):
1. A continuing intention to pursue the appeal is established.
2. The leave application discloses an arguable case for appeal.
3. There is a reasonable explanation provided for the delay.
4. No prejudice would result to the party opposite if the extension is allowed.
[10] I agree that they are apposite criteria.
[11] Turning to the application of these criteria to the record before the designated member of the Board:
1. There was no evidence of a continuing intention to pursue the appeal. Indeed Mr. Roy expressed no interest in an appeal, except for the pressure being applied by his insurer.
2. There was no suggestion of the existence of an arguable case. No new facts or new medical information existed. Further, Mr. Roy had testified before the Review Tribunal that he believed himself capable of performing the duties of a security or fire control position, and the Review Tribunal had relied upon this testimony to conclude that Mr. Roy was capable of regularly pursuing a substantially gainful occupation.
3. No explanation for the delay was provided.
4. Arguably, granting the extension of time would result in prejudice to the Minister, arising from the combination of the 18-month delay with the fact that hearings before the Board are generally de novo. See, for example, Pettit v. Canada(Minister of Human Resources Development) (April 22, 1998), CP 4855, CEB & PG (TB) ¶ 8711 (PAB).
[12] In those circumstances, in the absence of any reasons for the decision at issue, I conclude that either the designated Board member erred in law by failing to apply the correct criteria to the implied request for an extension of time, or that he reached his decision without regard for the material before him. The Court's intervention is therefore warranted on any standard of review, and the application for judicial review will be allowed.
[13] Before concluding, I acknowledge that subsection 83(3) of the Act only requires that written reasons be rendered on a leave application where leave is refused. I adopt, however, the direction of the Federal Court of Appeal, delivered in Canada (Canadian Security Intelligence Service-CSIS) v. Green, [1993] F.C.J. No. 1369 at paragraph 3, to the effect that where a full discretionary power has been conferred upon a judicial officer, and where there is nothing on the face of the record that suggests the judicial exercise of the discretion, it is incumbent upon the judicial officer to support the exercise of discretion with reasons.
ORDER
[14] THIS COURT ORDERS THAT:
1. The application for judicial review is allowed and the decision of the designated member of the Pension Appeals Board, dated September 17, 2004, is hereby set aside.
2. The matter is remitted for redetermination by a different member of the Board in accordance with these reasons.
3. No costs were sought and none are awarded.
Judge
APPENDIX
Section 83 of the Act and Rules 4 and 5 of the Rules are set out below:
| The Act
83(1) A party or, subject to the regulations, any person on behalf thereof, or the Minister, if dissatisfied with a decision of a Review Tribunal made under section 82, other than a decision made in respect of an appeal referred to in subsection 28(1) of the Old Age Security Act, or under subsection 84(2), may, within ninety days after the day on which that decision was communicated to the party or Minister, or within such longer period as the Chairman or Vice-Chairman of the Pension Appeals Board may either before or after the expiration of those ninety days allow, apply in writing to the Chairman or Vice-Chairman for leave to appeal that decision to the Pension Appeals Board. 83(2) The Chairman or Vice-Chairman of the Pension Appeals Board shall, forthwith after receiving an application for leave to appeal to the Pension Appeals Board, either grant or refuse that leave. 83(2.1) The Chairman or Vice-Chairman of the Pension Appeals Board may designate any member or temporary member of the Pension Appeals Board to exercise the powers or perform the duties referred to in subsection (1) or (2). 83(3) Where leave to appeal is refused, written reasons must be given by the person who refused the leave. 83(4) Where leave to appeal is granted, the application for leave
to appeal thereupon becomes the notice of appeal, and shall be deemed to have been filed at the time the application for leave to appeal was filed. 83(5) The Pension Appeals Board shall consist of the following members to be appointed by the Governor in Council: (a) a Chairman and a Vice-Chairman, each of whom shall be a judge of the Federal Court of Appeal, the Federal Court or a superior court of a province; and (b) not less than one and not more than ten other persons, each of whom shall be a judge of the Federal Court of Appeal, the Federal Court or a superior court of a province. 83(5.1) Subject to subsections (5.2) and (5.3), in addition to the members of the Pension Appeals Board for whom provision is made by subsection (5), any judge or former judge of the Federal Court of Canada, the Federal Court of Appeal or the Federal Court or of a superior or district court of a province may, on the request of the Chairman of the Board made with the approval of the Governor in Council, act as a temporary member of the Board. 83(5.2) Except in relation to a former judge, no request may be made under subsection (5.1) (a) to a judge of the Federal Court of Appeal or the Federal Court, without the consent of the Chief Justice of the Court or of the Attorney General of Canada; or (b) to a judge of a superior or district court of a province, without the consent of the chief justice or chief judge of that court or of the attorney general of the province. 83(5.3) The Governor in Council may approve the making of requests pursuant to subsection (5.1) in general terms or for particular periods or purposes, and may limit the number of persons who may act as temporary members of the Board under that subsection. 83(5.4) Each temporary member of the Board who is a former judge shall be paid such remuneration as may be fixed by the Minister. 83(5.5) Each temporary member of the Board is entitled to be paid such travel and living expenses incurred by the member in the performance of duties and functions under this Act as may be fixed by the Minister. 83(6) An appeal to the Pension Appeals Board shall be heard by either one, three or five members of the Board, whichever number the Chairman of the Board directs, and where the appeal is heard by three or five members of the Board, the decision of the majority is a decision of the Board. 83(7) Where an appeal is heard by three or five members of the Pension Appeals Board, the Chairman of the Board shall preside if he is one of those members, or, if he is not, he shall designate one of those members to preside. 83(8) The Pension Appeals Board may hear appeals at any place or places in Canada, and the Chairman of the Board shall arrange for hearings accordingly. 83(9) In the event of the absence or incapacity of the Chairman of the Pension Appeals Board or if the office of Chairman is vacant, the Vice-Chairman of the Board has, subject to any designation made by the Chairman under subsection (7), all the powers and duties of the Chairman. 83(10) Where an appeal is made to the Pension Appeals Board in respect of (a) a survivor's pension payable to the survivor of a deceased contributor, (b) a division of unadjusted pensionable earnings under section 55, 55.1 or 55.2, or (c) an assignment of a contributor's retirement pension under section 65.1, and in the Minister's opinion a person in addition to the appellant may be directly affected by the decision of the Pension Appeals Board, the Minister shall notify the Board of all such persons, and the Board shall add as a party to the appeal any such person who is not already a party thereto. 83(11) The Pension Appeals Board may confirm or vary a decision of a Review Tribunal under section 82 or subsection 84(2) and may take any action in relation thereto that might have been taken by the Review Tribunal under section 82 or subsection 84(2), and shall thereupon notify in writing the parties to the appeal of its decision and of its reasons therefor.
The Rules
4 An appeal from a decision of a Review Tribunal shall be commenced by serving on the Chairman or Vice-Chairman an application for leave to appeal, which shall be substantially in the form set out in Schedule I and shall contain (a) the date of the decision of the Review Tribunal, the name of the place at which the decision was rendered and the date on which the decision was communicated to the appellant; (b) the full name and postal address of the appellant;
(c) the name of an agent or representative, if any, on whom service of documents may be made, and his full postal address; (d) the grounds upon which the appellant relies to obtain leave to appeal; and
(e) a statement of the allegations of fact, including any reference to the statutory provisions and constitutional provisions, reasons the appellant intends to submit and documentary evidence the appellant intends to rely on in support of the appeal. SOR/92-18, s. 2; SOR/96-524, s. 2.
5 An application for an extension of time within which to apply for leave to appeal a decision of a Review Tribunal shall be served on the Chairman or Vice-Chairman and shall set out the information required by paragraphs 4(a) to (e) and the grounds on which the extension is sought. SOR/92-18, s. 3.
|
La loi
83(1) La personne qui se croit lésée par une décision du tribunal de révision rendue en application de l'article 82 - autre qu'une décision portant sur l'appel prévu au paragraphe 28(1) de la Loi sur la sécurité de la vieillesse - ou du paragraphe 84(2), ou, sous réserve des règlements, quiconque de sa part, de même que le ministre, peuvent présenter, soit dans les quatre-vingt-dix jours suivant le jour où la décision du tribunal de révision est transmise à la personne ou au ministre, soit dans tel délai plus long qu'autorise le président ou le vice-président de la Commission d'appel des pensions avant ou après l'expiration de ces quatre-vingt-dix jours, une demande écrite au président ou au vice-président de la Commission d'appel des pensions, afin d'obtenir la permission d'interjeter un appel de la décision du tribunal de révision auprès de la Commission. 83(2) Sans délai suivant la réception d'une demande d'interjeter un appel auprès de la Commission d'appel des pensions, le président ou le vice-président de la Commission doit soit accorder, soit refuser cette permission. 83(2.1) Le président ou le vice-président de la Commission d'appel des pensions peut désigner un membre ou membre suppléant de celle-ci pour l'exercice des pouvoirs et
fonctions visés aux paragraphes (1) ou (2). 83(3) La personne qui refuse l'autorisation d'interjeter appel en donne par écrit les motifs. 83(4) Dans les cas où l'autorisation d'interjeter appel est accordée, la demande d'autorisation d'interjeter appel est assimilée à un avis d'appel et celui-ci est réputé avoir été déposé au moment où la demande d'autorisation a été déposée. 83(5) La Commission d'appel des pensions se compose des membres suivants que nomme le gouverneur en conseil : a) un président et un vice-président qui doivent tous deux être juges de la Cour d'appel fédérale, de la Cour fédérale ou d'une cour supérieure d'une province; b) de une à dix autres personnes, chacune de celles-ci étant juge de la Cour d'appel fédérale, de la Cour fédérale ou d'une cour supérieure d'une province. 83(5.1) Sous réserve des paragraphes (5.2) et (5.3), en plus des membres de la Commission d'appel des pensions prévus au paragraphe (5), tout juge de la Cour fédérale du Canada, de la Cour d'appel fédérale, de la Cour fédérale ou d'une cour supérieure ou de district d'une province, et toute personne qui a occupé le poste de juge d'un tel tribunal peut, sur demande du président de la Commission assortie de l'autorisation du gouverneur en conseil, agir à titre de membre suppléant de la Commission. 83(5.2) Sauf en ce qui concerne une personne qui a occupé le poste de juge d'un tribunal, les demandes prévues au paragraphe (5.1) sont subordonnées : a) pour les juges de la Cour d'appel fédérale ou de la Cour fédérale, au consentement du juge en chef du tribunal concerné ou du procureur général du Canada; b) pour les juges d'une cour supérieure ou de district d'une province, au consentement du juge en chef du tribunal dont ils sont membres ou du procureur général de la province. 83(5.3) Le gouverneur en conseil peut autoriser les demandes prévues au paragraphe (5.1) en termes généraux ou pour des périodes ou des objets particuliers, et il peut limiter le nombre de personnes qui pourront agir à titre de membres suppléants de la Commission en vertu de ce paragraphe. 83(5.4) Les membres suppléants de la Commission qui ont occupé le poste de juge d'un tribunal reçoivent la rémunération fixée par le ministre. 83(5.5) Les membres suppléants sont indemnisés des frais de déplacement et de séjour, fixés par le ministre, faits dans l'exercice des fonctions qui leur sont confiées en application de la présente loi. 83(6) Les appels interjetés auprès de la Commission d'appel des pensions sont, selon ce qu'ordonne le président de la Commission, entendus par, soit un membre, soit trois membres, soit encore cinq membres de la Commission et, lorsqu'ils le sont par trois ou cinq membres, la décision de la majorité des membres emporte décision de la Commission. 83(7) Dans les cas où un appel est entendu par trois ou cinq membres de la Commission d'appel des pensions, le président de la Commission préside la séance s'il fait partie des membres en question et, dans le cas contraire, il désigne un de ces membres pour agir à titre de président de séance. 83(8) La Commission d'appel des pensions peut siéger partout au Canada et il incombe à son président d'organiser les séances en conséquence. 83(9) En cas d'absence ou d'empêchement du président de la Commission d'appel des pensions, ou de vacance de son poste, le vice-président, sous réserve d'une désignation par le président en application du paragraphe (7), assume la présidence. 83(10) Dans les cas où un appel auprès de la Commission d'appel des pensions se rapporte : a) à une pension de survivant payable au survivant d'un cotisant décédé; b) au partage des gains non ajustés ouvrant droit à pension en application de l'article 55, 55.1 ou 55.2; c) à une cession de la pension de retraite d'un cotisant en application de l'article 65.1, et que, de l'avis du ministre, une personne autre que l'appelant peut être directement touchée par la décision de la Commission d'appel des pensions, le ministre donne à la Commission un avis mentionnant l'ensemble de ces personnes et la Commission met alors en cause celles qui, parmi ces personnes, ne sont pas déjà parties aux procédures d'appel. 83(11) La Commission d'appel des pensions peut confirmer ou modifier une décision d'un tribunal de révision prise en vertu de l'article 82 ou du paragraphe 84(2) et elle peut, à cet égard, prendre toute mesure que le tribunal de révision aurait pu prendre en application de ces dispositions et en outre, elle doit aussitôt donner un avis écrit de sa décision et des motifs la justifiant à toutes les parties à cet appel.
Les règles
4 L'appel de la décision d'un tribunal de révision est interjeté par la signification au président ou au vice-président d'une demande d'autorisation d'interjeter appel, conforme en substance à l'annexe I, qui indique : a) la date de la décision du tribunal de révision, le nom de l'endroit où cette décision a été rendue et la date à laquelle la décision a été transmise à l'appelant; b) les nom et prénoms ainsi que l'adresse postale complète de l'appelant; c) le cas échéant, le nom et l'adresse postale complète d'un mandataire ou d'un représentant auquel des documents peuvent être signifiés; d) les motifs invoqués pour obtenir l'autorisation d'interjeter appel; et e) un exposé des faits allégués, y compris tout renvoi aux dispositions législatives et constitutionnelles, les motifs que l'appelant entend invoquer ainsi que les preuves documentaires qu'il entend présenter à l'appui de l'appel. DORS/92-18, art. 2; DORS/96-524, art. 2.
5 La demande de prorogation du délai imparti pour demander l'autorisation d'interjeter appel de la décision d'un tribunal de révision est signifiée au président ou au vice-président et contient les renseignements visés aux alinéas 4a) à e) et un exposé des motifs sur lesquels elle est fondée. DORS/92-18, art. 3. |
FEDERAL COURT
NAMES OF COUNSEL AND SOLICITORS OF RECORD
DOCKET: T-2055-04
STYLE OF CAUSE: MINISTER OF HUMAN RESOURCES DEVELOPMENT
Applicant
and
TONY L. ROY
Respondent
PLACE OF HEARING: HALIFAX, NOVA SCOTIA
DATE OF HEARING: OCTOBER 4, 2005
APPEARANCES:
FLORENCE CLANCY FOR THE APPLICANT
NO ONE APPEARING FOR THE RESPONDENT
SOLICITORS OF RECORD:
JOHN H. SIMS, Q.C. FOR THE APPLICANT
DEPUTY ATTORNEY GENERAL OF CANADA