Date: 20110316
Docket: A-81-10
Citation: 2011 FCA 101
CORAM: LÉTOURNEAU
J.A.
NADON
J.A.
SEXTON
J.A.
BETWEEN:
FRIENDS OF THE CANADIAN WHEAT BOARD,
HAROLD BELL, ART HADLAND, ART MACKLIN,
KEN ESHPETER, LYNN JACOBSON, TERRY BOEHM,
LYLE SIMONSON, KEITH RYAN,
WILF HARDER
AND LAURENCE NICHOLSON
Appellants
and
ATTORNEY GENERAL OF CANADA,
THE MINISTER OF AGRICULTURE AND AGRIFOOD
IN HIS CAPACITY AS MINISTER RESPONSIBLE
FOR THE CANADIAN WHEAT BOARD
AND THE
CANADIAN WHEAT BOARD
Respondents
REASONS FOR JUDGMENT
LÉTOURNEAU J.A.
Issues on appeal
[1]
This is an
appeal against a decision of Russell J. of the Federal Court (the judge)
whereby he dismissed an application for judicial review of the government’s
decision to issue a directive regarding the election of directors to the
Canadian Wheat Board (CWB): 2010 FC 104. The directive was contained in a
ministerial letter dated July 23, 2008.
[2]
The
appellants seek a reversal of the judge’s findings that:
a) they did not have
standing to bring an application for judicial review;
b) the
minister of Agriculture and Agri-Food and minister for the Canadian Wheat Board
(the minister) had lawful authority to issue the directive; and
c) the
minister did not act contrary to the Regulations Respecting the Election of
Directors of the Canadian Wheat Board, SOR/98-414 (the Regulations).
[3]
At the
hearing, counsel for the appellants requested that the name of Mr. Stewart
Wells be removed from the style of cause as appellant because Mr. Wells is now
an elected member of the CWB. I propose to accept the request and amend the
style of cause accordingly.
The legislative provisions under review
[4]
The
minister relied on section 3.07 of the Canadian Wheat Board Act, R.S.C.
1985, c. C-24 (the Act) for his authority to issue directives on the proper
conducting and supervision of an election to the Board of Directors of the CWB.
[5]
The
Regulations were enacted pursuant to section 3.06 of the Act. The definitions
of producer, actual producer and permit book in section 2 of the Act as well as
the provision relating to entitlement to a permit book are also relevant to a
determination of the issues on this appeal.
[6]
Sections
5, 6, 7 and 8 of the Regulations deal with the right to vote at the election of
the CWB members and the inclusion of eligible voters in the voters list.
[7]
Finally,
the issue of the personal standing of the appellants to challenge the
minister’s decision by way of judicial review is governed by subsection 18.1(1)
of the Federal Courts Act, R.S.C. 1985, c. F-7.
[8]
I
reproduce these provisions:
Canadian Wheat Board Act, R.S., 1985, c. C-24
2. (1) In this Act,
…
“actual
producer” means a producer actually engaged in the production of grain;
…
“permit
book” means a Canadian Wheat Board delivery permit issued pursuant to this
Act by the Corporation for a crop year;
…
“producer”
includes, as well as an actual producer, any person entitled, as landlord,
vendor or mortgagee, to the grain grown by an actual producer or to any share
therein;
…
Regulations
3.06 (1) The Governor in Council may, on
the recommendation of the Minister, make regulations respecting the election
of directors.
Limitation
(2) After the date referred to in section 3.08, the
Minister shall not make the recommendation referred to in subsection (1)
unless he or she has consulted with the board, including consulting with
respect to geographical representation on the board and the staggering of the
terms of office of directors.
Administration of election
3.07 Subject to the regulations, the
Corporation shall take any measures that the Minister may determine for the
proper conduct and supervision of an election of directors, including
(a) employing the persons necessary to conduct or
manage the election and the payment of any fees, costs, allowances and
expenses of any person so employed, that the Minister may determine; and
(b) paying the costs of the election incurred by or
on behalf of the Corporation, including the costs incurred in the
preparation, printing and distribution of material providing information on
candidates.
…
26. (4) No permit book shall be issued to
any person other than a producer.
|
2. (1) Les définitions qui suivent
s’appliquent à la présente loi.
[…]
«
carnet de livraison » Carnet de livraison délivré par la Commission pour une
campagne agricole, conformément à la présente loi.
[…]
«
producteur » Outre le producteur-exploitant, toute personne ayant droit, à
titre de propriétaire, de vendeur ou de créancier hypothécaire, à tout ou
partie des grains cultivés par celui-ci.
[…]
«
producteur-exploitant » Producteur se livrant en fait à la production de
grains.
[…]
Règlements
3.06 (1) Sur la recommandation du
ministre, le gouverneur en conseil peut, par règlement, régir l’élection des
administrateurs.
Consultation du conseil
(2) À compter de la date mentionnée à
l’article 3.08, la recommandation du ministre est subordonnée à la
consultation du conseil sur le contenu éventuel des règlements à prendre
notamment sur la représentation géographique des administrateurs et
l’échelonnement dans le temps de leur mandat.
Mesures administratives
3.07 Sous réserve des règlements, la
Commission prend les mesures administratives que le ministre juge indiquées
relativement à l’organisation de l’élection et à la surveillance de son
déroulement, notamment :
a) l’embauchage du personnel
administratif nécessaire à la tenue de l’élection et le versement de la
rémunération et des indemnités que fixe le ministre;
b) le paiement des frais afférents à la
tenue de l’élection qu’elle a engagés ou qui l’ont été en son nom, y compris
les frais qu’elle a autorisés quant à la préparation, l’impression et la
diffusion de la documentation électorale destinée à faire connaître les
candidats.
[…]
26. (4) Les carnets de livraison ne sont
délivrés qu’aux producteurs.
|
Regulations Respecting the Election of
Directors of The Canadian Wheat Board, SOR/98-414
5. (1) A producer who is an individual
may vote if they have attained the age of 18 years by the last day of the
election period or, if under 18 years of age the producer has designated a
cosignatory of a permit book who is at least 18 years old on that day and who
has consented to vote on behalf of the producer.
(2) No producer may vote more than once
in an election.
6. (1) Subject to subsection (2),
every producer is entitled to be included in the voters list in respect of
the electoral district in which they produce grain.
(2) A producer who produces grain in
more than one electoral district may only be included in one voters list,
which is chosen by the producer.
7. (1) Not later than 60 days before the
last day of the election period, the Corporation shall provide the election
coordinator with a list of producers who are named in a permit book on the
day the list is sent or who were named in a permit book during the previous
crop year.
(2) The election coordinator shall, not
less than 30 days before the last day of the election period,
(a) make publicly available a
list of the names of the voters in each electoral district; and
(b) send to each candidate a
list of the names and addresses of the voters in the candidate’s electoral
district.
8. Any producer whose name is not
included on the voters list may, at least fourteen days before the last day
of the election period, request the election coordinator to add the name of
the producer to the voters list, if the producer provides proof of their
identity and eligibility.
|
5. (1) Le producteur qui est une personne
physique peut voter s’il est âgé d’au moins 18 ans le dernier jour de la
période d’élection ou, dans le cas contraire, s’il nomme à cette fin une
autre personne âgée d’au moins 18 ans à ce jour qui a également signé le
carnet de livraison et qui consent à voter en son nom.
(2) Nul producteur ne peut voter plus
d’une fois à une élection.
6. (1) Sous réserve du paragraphe (2),
tout producteur a le droit d’être inscrit sur la liste des électeurs pour la
circonscription électorale dans laquelle il se livre à la production de grain.
(2) Le producteur qui se livre à la
production de grain dans plus d’une circonscription électorale est inscrit
sur une seule liste d’électeurs de son choix.
7. (1) Au plus tard soixante jours avant
le dernier jour de la période d’élection, la Commission fournit au
coordonnateur d’élection la liste des producteurs dont le nom figure dans un
carnet de livraison à cette date ou y figurait au cours de la dernière
campagne agricole.
(2) Au plus tard 30 jours avant le
dernier jour de la période d’élection, le coordonnateur d’élection :
a) rend publique la liste des noms des
électeurs de chaque circonscription électorale;
b) transmet à chaque candidat la liste
des noms et adresses des électeurs de sa circonscription électorale.
8. Au plus tard 14 jours avant le dernier
jour de la période d’élection, le producteur dont le nom n’est pas inscrit
sur la liste des électeurs peut demander au coordonnateur d’élection d’y
ajouter son nom, s’il établit qu’il a droit d’y être inscrit et fournit une
preuve de son identité.
|
Federal
Courts Act, R.S.C.
1985, c. F-7
18.1
(1) An application for judicial review may be made by the Attorney General of
Canada or by anyone directly affected by the matter in respect of which
relief is sought.
|
18.1 (1) Une demande de contrôle judiciaire
peut être présentée par le procureur général du Canada ou par quiconque
est directement touché par l’objet de la demande.
|
[Emphasis added]
The minister’s directive
[9]
The minister’s directive
addressed a certain number of concerns he had regarding the process in place
for the election of CWB directors: see appeal book, at page 61, the letter sent
to the President and CEO of the CWB. The one at issue in the present
proceedings relates to the integrity of the voters list prepared for the
election.
[10]
The minister was of
the view that individuals who may hold permit books might not have clearly
established that they were producers eligible to vote at the election because
they had made no delivery of grains to the CWB in recent years: ibidem,
at page 63.
[11]
The minister’s
request to the CWB was to ensure that the permit book holders who had not
delivered to the CWB during the 2007-08 and 2008-09 crop years would not
automatically be included on the voters list. “Rather, they should be allowed
to have their names added in the same manner as producers who do not hold
permit books”: ibidem.
[12]
In effect, the
minister’s directive meant that these permit book holders by being denied
automatic inclusion in the voters list would be deprived of the right to
automatically receive a voting package and ballot: see the affidavit of Robert
Roehle, appeal book, tab 5.
[13]
The CWB complied with
the minister’s directive: see appeal book, at page 60, the letter from the
General Counsel for the CWB.
The decision of the Federal Court
a)
Personal standing of the appellants
[14]
The judge analyzed
only the issue of personal standing of the appellants. He was not satisfied
that the appellants, although they had argued that a broader public interest
was at stake, were seeking to obtain public interest standing.
[15]
He concluded that no
evidence had been provided to him that the appellants had been directly
affected, or might be directly affected, by the minister’s directive. He based
his conclusion on the fact that, except for Mr. Ryan, the appellants all
appeared on the voters list. He found that there was no evidence that their
right to vote in the directors’ election of 2008 was affected: see reasons for
judgment at paragraph 49.
[16]
As for Mr. Ryan, the
judge’s view was that while Mr. Ryan may not have been included on the initial
voters list, his right to vote was not affected because he could follow the
procedure set forth in the Regulations and ensure that his name be put on the
list: ibidem.
[17]
The judge found that
the real purpose behind the appellants’ challenge of the minister’s directive
had “nothing to do with how the Decision affected [their] rights”: ibidem,
at paragraph 52. He concluded his consideration of the appellants’ standing at
paragraph 52 with the following statement:
This application is brought as part of a
political debate by the Applicants whose personal rights have not been affected
and who have not demonstrated any prejudicial effect to them, or the imposition
of a legal obligation upon them as a result of the Decision.
In
the judge’s view, only the CWB was affected by the minister’s decision.
b)
The merits of the case
[18]
In case it could be
found that his decision on the issue of standing was erroneous, the judge
proceeded to adjudicate on the merits of the application for judicial review: ibidem,
at paragraph 54.
[19]
Essentially, the
judge ruled that the impact of the minister’s directive did not affect the
right to vote, but merely the way the voters list is compiled: ibidem,
at paragraph 57.
[20]
Furthermore, his
interpretation of the definition of “producer” and “actual producer” in section
2 of the Act led him to conclude that the holder of a permit book is not a
producer if he is not actually engaged in the production of grain: ibidem,
at paragraph 65. Hence, he found that the minister’s directive accorded with
both the Act and the Regulations. It was a “measure intended to ensure the
integrity of the voters list” and such a measure “is a measure that determines
the proper conduct and supervision of an election of directors within the
meaning of section 3.07 of the Regulations”: ibidem, at paragraph 69.
Analysis of the decision and the parties’ submissions
a)
Personal and public interest standing
[21]
With respect, I think
the judge took too narrow a view of the concept of “directly affected” required
to obtain personal standing. For a person to be directly affected “the decision
at issue must be one which directly affects the party’s rights, imposes legal
obligations on it, or prejudicially affects it directly”: see League for
Human Rights of B’Nai Brith Canada v. Odynsky, 2008 FC 732, at paragraph 24; League
for Human Rights of B’Nai Brith Canada v. R., 2010 FCA 307, at paragraph
58. The fact that ultimately the appellants’ right to vote at the election was
not affected does not mean that the minister’s directive had no prejudicial
effect on some of their rights associated with the right to vote.
[22]
Prior to the
minister’s directive, all persons named in a permit book in the past two years
were entitled to be automatically included on the initial voters list. After
the directive, only those persons named in a permit book who had delivered
grain to the CWB in the past two years were entitled to be listed on the
initial voters list. Thus the directive changed the rights that attached to
holding a permit book and so directly affected all of the appellants, except
for the Friends of the Canadian Wheat Board which is not a permit book holder.
[23]
Moreover, the
directive imposed on the appellants and other persons falling in the same
category the obligation of establishing their eligibility through the newly
created application form process if they were not included in the initial
voters list. While the right to vote itself was not directly affected by the
directive, rights related to the right to vote, such as the rights to be
automatically included in the voters list and to automatically receive a ballot
without having to make a declaration to obtain it, were directly affected. In
my view, these direct effects gave the appellants standing.
[24]
At the very least,
the appellant Mr. Ryan was named in a permit book and not included on the
initial voters list because he had not delivered grain to the CWB in the
relevant years. His right to be included on the initial voters list because he
held a permit book was directly affected by the directive.
[25]
The respondents
argued that all except one of the individuals appealing were named in the
permit book and had made deliveries within the time frame set out by the
minister’s directive. Thus they were not directly affected by the directive and
consequently they had no standing to challenge it.
[26]
This contention finds
its answer in the decision of our Court in Moresby Explorers Ltd. v. Canada (Attorney General), 2006 FCA 144. The objection to the
appellants’ standing in that case rested on the fact that the policy, whose
validity was challenged on jurisdictional grounds, had not been applied to them
in an adverse manner.
[27]
Our colleague,
Pelletier J.A. writing for the Court, at paragraph 17, asserted that while
“standing is a device used by courts to discourage litigation by officious
inter-meddlers, it is not intended to be a pre-emptive determination that a
litigant has no valid cause of action”. “There is”, he said, “a distinction to
be drawn between one’s entitlement to a remedy and one’s right to raise a
justiciable issue”:
[28]
He then went on to
address the issue of an eventual as opposed to an actual prejudicial effect
suffered by the appellants. At paragraphs 16, 19 and 21, he wrote:
[16] I do not agree that the
appellants lack standing to raise the question as to whether the 2,500
user-days/nights policy is ultra vires simply because they cannot show
that the Haida Allocation Policy has been applied against them in an adverse
manner. The evidence discloses that the Haida Allocation Policy is intended to
limit the growth of individual operators to the point where they could unfairly
monopolize park resources to the detriment of other operators, and ultimately
to the detriment of the range of services available within the park reserve
boundaries. The appellants are clearly within the intendment of the Haida Allocation
Policy. They do not have to wait until it causes them a loss to challenge it
on jurisdictional grounds.
…
[19] It is clear that the
appellants are within the intendment of the policies which they challenge, even
if those policies have no application to them at the moment. They raise a
question which is suitable for judicial determination and in respect of which
they have an interest of “the required nature and extent”.
…
[21] To the extent that he is
someone who is subject to the Haida Allocation Policy, in the sense that it
could eventually result in the curtailment of his quota, he has, in my view,
the necessary standing to challenge the Haida Allocation Policy. Whether he can
succeed in that challenge is another matter.
[Emphasis added]
[29]
As in the Moresby
case, the appellants in the present instance challenge the vires of the
directive issued by the minister. The fact that some or all of them may not
have been affected at this past election does not deprive them of the standing
to challenge the minister’s directive in anticipation of the coming election.
To paraphrase Pelletier J.A., they do not have to wait until it causes them a
loss.
[30]
Finally, I think that
all the appellants in the present instance who are producers have a direct
interest in ensuring that the election of members of the CWB is conducted and
held according to the law. Thus they have personal standing to challenge the vires
of the minister’s directive. I am comforted in this view by the fact that they
are compelled to market their crop with the CWB and that the minister’s
directive has an effect on the composition of the initial voters list. A
similar directive issued for the 2006 election resulted in the
disenfranchisement of some 16,577 producers with the following effect. Of the
producers who automatically received a ballot, 49.9% responded. With respect to
the 16,577 producers who had to apply for ballots, only 1,618 ballots were
cast, showing then a turnout of less than 10%: see appeal book, tab 7, at page
119, the affidavit of Robert Roehle. There is no doubt that the directive
changed the dynamic of the election.
[31]
I am left to examine
the legal status of the Friends of the Canadian Wheat Board which is an
unincorporated association. It is not readily discernable from the record who
the members of this organization are and what the nature and extent of their
direct interest is for the purpose of determining whether the organization as
such has personal standing to bring the vires issue to court.
[32]
It could be argued
that the organization deserves to be granted public interest standing. In view,
however, of the conclusion that I have reached on the personal standing of the
other appellants as well as on the merits of the appeal hereafter discussed, it
is not necessary to address the public interest standing issue.
[33]
In conclusion, I find
that the judge made an error in denying the appellants, except for the Friends
of the Canadian Wheat Board, personal standing to bring an application for
judicial review.
b)
The merits of the appeal
[34]
Skillfully and with
great clarity, counsel for the appellants exposed the effects of the minister’s
directive on some of the producers’ rights regarding the election of board
members. While this undertaking was necessary on the issue of standing, it is
common understanding that the resulting determination on standing is not a
determination on the merits of the case.
[35]
In Canadian Wheat
Board v. Canada (Attorney General), 2009 FCA 214, at paragraph 46, our
Court expressed in the following terms the approach to be taken when analyzing
a vires issue:
[46] The first step in a vires
analysis is to identify the scope and purpose of the statutory authority
pursuant to which the impugned order was made. This requires that [the
provision] be considered in the context of the Act read as a whole. The second
step is to ask whether the grant of statutory authority permits this particular
delegated legislation (Jafari v. Canada
(Minister of Employment & Immigration), [1995] 2 F.C. 595 (Fed. C.A.),
para. 14).
[36]
The judge followed
this approach. He looked at sections 6, 7 and 8 of the Regulations which
entitle producers to be included in the voters list in respect of the
electoral district in which they produce grain, ensure that, no later than
60 days before the last day of the election period, the election coordinator is
provided with a list of producers who are named in a permit book on the day the
list is sent or who were named in a permit book during the previous crop year
and, finally, provide for a mechanism by which someone whose name does not
appear on the list can be added if he meets the eligibility conditions
(emphasis added).
[37]
He looked at the
definition of producer and actual producer found in section 2 of the Act. He
analyzed the relationship between the two definitions and, rightly so in my
view, concluded that, while the term “producer” is more encompassing than the
term “actual producer” in that it includes a landlord, a vendor or a mortgagee,
these persons fit the expanded definition of producer if they are entitled “to
the grain grown by an actual producer or to any share therein” (emphasis
added). An “actual producer” is a producer actually engaged in the production
of grain (emphasis added).
[38]
Thus a producer is
either someone actually engaged in the production of grain or a landlord,
vendor or mortgagee who is entitled to the grain or a share of the grain grown
by an actual producer. In other words, in order to be a producer, there has to
be an actual engagement in the production of grain: see the definitions of
“producer” and “actual producer” in section 2 of the Act.
[39]
At paragraph 60 of
his reasons for judgment, he expressed his views in the following terms:
[60] Under section 2(1) of the Act, a
“‛producer’ includes, as well as an actual producer, any person entitled,
as landlord, vendor or mortgagee, to the grain grown by an actual producer or
to any share therein”. This definition leads back to the definition of an
“actual producer” who is “a producer actually engaged in the production of
grain”. So a producer is someone who is actually engaged in the production
(though not necessarily the delivery) of grain, or a related landlord, vendor,
or mortgagee who is entitled to the grain grown by the actual producer. This
means that an actual producer is someone who grows grain.
[40]
A joint reading in
context of sections 6, 7 and 8 of the Regulations shows that these provisions
are procedural in nature and impose time and territorial limits as well as
requirements of grain production and voting eligibility.
[41]
Thus section 6 limits
the entitlement of producers to be included in the voters list to the voters
list of the electoral district in which they produce grain. If a producer
produces grain in more than one electoral district, he may choose the district
in which he wants to be included in the voters list.
[42]
Section 7 delimits
both the time within which the voters list is to be provided to the election
coordinator and the time at which the name of a producer must appear in a
permit book in order to be on the list.
[43]
Section 8 contains
requirements of producers’ identity and eligibility to be included in the
voters list for those whose name does not appear on that list.
[44]
The minister’s
directive was issued pursuant to section 3.07 of the Act which enables the
minister to take measures “for the proper conduct and supervision of an
election of directors”: see section 3.07, supra. As previously
mentioned, the minister had concerns about the integrity of the voters list
required to be prepared and provided to the election coordinator by sections 6
and 7 of the Regulations.
[45]
The minister wanted
to make sure that only producers within the meaning of the Act would appear on
the voters list, i.e. producers actually engaged in the production of
grain (actual producer) and any person entitled, as landlord, vendor or
mortgagee, to the grain grown by an actual producer or to any share
therein (emphasis added). In other words, as the directive shows, the minister
wanted to ensure that only producers eligible to vote at the election would
appear on the voters list.
[46]
As a result of the
minister’s directive, only those producers who had delivered grain to the CWB
during the 2007-08 and 2008-09 crop years would automatically appear on the
voters list. Proof of actual delivery by a permit holder is proof of actual
production by that permit holder. Others would have to establish, according to
the procedure set forth in the Regulations, that they are producers within the
meaning of the Act in order to be on the voters list. The directive provided a
means for facilitating the proof that a permit holder is a producer eligible to
vote at the election. I agree with the judge that a “measure intended to ensure
the integrity of the voters list is a measure that determines the proper
conduct and supervision of an election of directors within the meaning of
section 3.07 of the Regulations”: see reasons for judgment at paragraph 69.
Conclusion
[47]
For these reasons, I
would allow the appeal in part and declare that the appellants, except for the
Friends of the Canadian Wheat Board, had personal standing to bring the
application for judicial review. I would dismiss the appeal on the merits of
the application for judicial review. The success being divided except for the
Canadian Wheat Board, I would make the appellants and the respondents bear
their own costs of the appeal. I would allow costs to the Canadian Wheat Board
payable by the other respondents.
[48]
I would amend the
style of cause of the judgment and reasons for judgment so as to delete the
name of Mr. Stewart Wells as appellant.
“Gilles
Létourneau”
“I
agree
M.
Nadon J.A.”
“I
agree
J.
Edgar Sexton J.A.”