Kotelenets v. Canada (Minister of Citizenship and
Immigration)
Between
Lyudmyla Kotelenets, Applicant, and
The Minister of Citizenship and Immigration, Respondent
Lyudmyla Kotelenets, Applicant, and
The Minister of Citizenship and Immigration, Respondent
[2015] F.C.J. No. 290
2015 FC 209
Docket: IMM-4313-13
Federal Court
Toronto, Ontario
LeBlanc J.
Heard: October 9, 2014.
Judgment: February 18, 2015.
Docket: IMM-4313-13
Federal Court
Toronto, Ontario
LeBlanc J.
Heard: October 9, 2014.
Judgment: February 18, 2015.
(37 paras.)
JUDGMENT AND REASONS
·
LeBLANC J.:--
I. Introduction
1 The
Applicant (or Ms Kotelenets) seeks judicial review of a decision of the
Immigration Appeal Division (IAD) made on May 23, 2013 which dismissed her
appeal of the refusal of a visa officer to grant a permanent residence visa to
her mother and stepfather who live in Ukraine, and whose visa applications were
sponsored by the Applicant as members of the family class.
2 The
visa applications were refused as the Applicant's mother was found to be
inadmissible to Canada pursuant to subsection 38(1) of the Immigration and Refugee Protection Act (the
Act) as a person whose health is likely to cause an excessive demand on
Canada's healthcare services.
3 The
Applicant did not challenge this finding of the visa officer before the IAD but
rather sought special relief under paragraph 67(1)(c) of the Act which empowers
the IAD to grant an appeal where it is satisfied that, at the time the appeal
is disposed of, sufficient humanitarian and compassionate considerations,
taking into account the best interests of a child directly affected by the visa
officer's decision, warrant special relief in light of all the circumstances of
the case.
4 The
Applicant claims that the IAD's decision must be set aside on the ground that
the IAD breached the rules of procedural fairness by not allowing her to fully
present her case. She also claims that the decision is unreasonable as the IAD,
in its assessment of the humanitarian and compassionate considerations
supporting her appeal, failed to consider her mother's current medical
condition.
5 For
the reasons that follow, the judicial review application is granted.
II. The Facts
6 Ms
Kotelenets is a Canadian citizen who immigrated to Canada in 2001 along with
her now ex-husband and two children, aged 27 and 25 at the time of the IAD
decision. She first applied to sponsor her mother and stepfather, aged 77 and
78 respectively at the time of the IAD decision, in 2003. The first request was
rejected due to the income threshold imposed on Ms Kotelenets in order to be a
sponsor. This decision was appealed to the IAD on humanitarian and
compassionate grounds and the appeal was allowed in 2009, resulting in the
permanent residency visa applications of Ms Kotelenets' parents being further
processed.
7 In
the course of the processing of these applications, Ms Kotelenets' mother
underwent medical examinations. These examinations revealed that Ms.
Kotelenets' mother was suffering from severe aortic valve stenosis requiring
valve replacement and specialized care and monitoring both before and after the
surgery.
8 On
April 14, 2011, a visa officer determined that Ms. Kotelenets' mother had a
health condition which would reasonably be expected to cause excessive demand
on healthcare services in Canada and concluded that she was inadmissible to
Canada. As an accompanying family member, Ms. Kotelenets' stepfather, given the
mother's condition, was also found inadmissible to Canada.
9 Ms
Kotelenets appealed that decision to the IAD, seeking, as indicated above,
special relief based on humanitarian and compassionate grounds. This appeal was
to -- and did -- proceed de novo.
10 As
permitted by section 37 of the Immigration Appeal Division
Rules (SOR/2002-230), the Applicant formally notified
the IAD that she intended to call four witnesses to testify at the hearing.
These witnesses were her two sons, a friend from her church, as well as her
mother. In the case of her mother, she indicated in her witness information
notice to the IAD that she wanted her to testify by telephone and that an
interpreter in the Russian or Ukrainian languages would be needed. Ms
Kotelenets also filed, in support of her appeal, an up-dated medical report indicating
that her mother's condition was largely asymptomatic and that she did not need
to undergo surgery.
11 At
the hearing of the appeal the Applicant was informed that there was no
interpreter available for her mother and that, in any event, she should be able
to tell her mother's story herself. As a result, the Applicant's mother did not
testify. With respect to the Applicant's other three witnesses, they were told
by the IAD to leave the hearing room and that they would be called later.
However, none of them testified as the IAD later decided it did not need to
hear from them on the basis that they would not add anything to the Applicant's
testimony.
12 It
is important to add that Ms Kotelenets was representing herself at the appeal
hearing.
13 On
May 23, 2013, the IAD rejected Ms Kotelenets' appeal on the ground that special
relief under paragraph 67(1)(c) of the Act could not be granted solely on the
basis of family separation, that the evidence of potential hardship resulting
from the rejection of the permanent residency visa applications of Ms
Kotelenets' parents was not very compelling and that, when weighed against the
future demand on Canada's healthcare services, it had no option but to conclude
that the Applicant had not established that special relief was warranted.
III. The Lateness of the Filing of the Applicant's
Judicial Review Application
14 The
Applicant filed her Application for Leave and Judicial Review on June 25, 2013,
which is 25 days following receipt of the IAD's decision. As her parents live
overseas, she though, incorrectly, that her deadline for the filing of the said
Application with the Court was 30 days. Her deadline for doing so was in fact
15 days as her case arose in Canada, as provided for by paragraph 72(2)(b) of
the Act. As a result, she sought an extension of time to file her Application
for Leave and Judicial Review.
15 The
Respondent claims that this request should be denied and the Applicant's
judicial review application dismissed accordingly. I disagree.
16 The
proper test to extend timelines has been articulated by the Federal Court of
Appeal in Canada (Attorney General) v Hennelly, 244 NR 399; 167 FTR 158. This test is whether the party seeking the
extension has demonstrated (i) a continuing intention to pursue his or her
application; (ii) that the said application has some merit; (iii) that no
prejudice to the other party arises from the delay being sought, and (iv) that
a reasonable explanation for the delay exists (Hennelly, above at para 3). Regarding this fourth criteria, the Federal Court
Appeal stated that any determination as to whether a reasonable explanation
exists will turn on the facts of each particular case (Hennelly, at para 4).
17 First,
there is no doubt that Ms Kotelenets has shown a continuing intention to pursue
her Application for Leave and Judicial Review. She explained, in her
application materials, that she took some time to find a lawyer to represent
her and that on the date she met her current counsel, June 25, 2013, she
immediately instructed her to challenge the IAD's decision. The Application for
Leave and Judicial Review was filed the same day. Second, as leave was
subsequently granted, it is clear that the said application has some merit.
Third, there is no evidence of any prejudice to the Respondent arising from the
delay being sought.
18 There
is, in my view, a reasonable explanation for the delay. Ms Kotelenets, who, at
that time was self-represented, made an honest mistake in believing that her
delay to proceed with judicial review of the IAD's decision was 30 days as she
thought, given that her parents live in Ukraine, that her case was a matter
arising outside Canada as contemplated by paragraph 72(2)(b) of the Act. In
these circumstances, I would give her the benefit of the doubt and accept the
explanation given for the delay.
19 In
any event, the case law makes it clear that the underlying consideration when
weighing the factors set out in Hennelly, above, is that justice must be done between the parties, which
could mean that in certain circumstances, an extension of time will still be
granted even if one of the four factors is not satisfied (Canada (Minister of Human Resources Development) v Hogervost, 2007 FCA 41, at para 32; Strungmann v Canada
(Citizenship and Immigration), 2011 FC 1229, at para 9).
20 I
am satisfied that this is a case where justice must be done between the parties
and the extension of time sought by the Applicant for the filing of her
Application for Leave and Judicial Review ought to be granted.
IV. Issues and Standard of Review
21 This
matter raises the following issues:
Did the IAD breach the
duty of procedural fairness owed to the Applicant?
Is the IAD's finding
that special relief under paragraph 67(1)(c) of the Act is not warranted in all
of the circumstances of this case unreasonable?
22 Given
my answer to the first question, there will be no need to consider the second
issue.
23 As
is well established, issues of procedural fairness are to be reviewed on a
standard of correctness. This means that the Court owes no deference to the IAD
in respect of such issues (Dunsmuir, above, at para 50, Sapru v Canada
(Citizenship and Immigration), 2011 FCA 35, [2012] 4 FCR
3, at paragraphs 25-27; Canada (Public Safety and
Emergency Preparedness) v Martinez-Brito, 2012 FC 438,
[2013] 4 FCR 471 at para 15; Sidhu v Canada (Minister of
Citizenship and Immigration), 2012 FC 515, 409 FTR 58 at
para 38).
V. Analysis
24 As
the Respondent correctly points out, the IAD has sole jurisdiction to hear and
determine all questions of law and fact and is required by the Act to deal with
all proceedings before it informally and as quickly as circumstances permit.
Accordingly, the Respondent claims that it is open to the IAD to exercise
control on its own procedure, including the decision not to hear witnesses in a
given case.
25 However,
according to subsection 162(2) of the Act, these broad powers need to be
exercised "as the circumstances and the conditions of fairness and natural
justice permit". They also have to be exercised in accordance with the
Rules, adopted under section 161 of the Act, governing the functioning of the
IAD.
26 Here,
by denying the self-represented Applicant the opportunity to provide the
evidence of any of the four
witnesses she had formally notified the IAD of her intention to call, as she
was expected and required to do under the Immigration
Appeal Division Rules, the IAD just went too far in
controlling its own hearing process.
27 Seeking
to have four witnesses testify was not an excessive demand given the nature of
the relief sought in this case. The flexible nature of the procedure before the
IAD is aimed at the effectiveness of the entire process, not as a means to
trump the right to a fair hearing (Wang v Canada
(Minister of Citizenship and Immigration), 2007 FC 531,
312 FTR 312). Here, the decision of the IAD not to hear any of Ms Kotelenets'
witnesses took away any possibility for her to strengthen her claim for
humanitarian and compassionate relief.
28 I
agree with Ms Kotelenets that while she was indeed capable of telling her own
story, the IAD failed to recognise that different witnesses could bring their
own perspective to the humanitarian and compassionate issues at hand. Her
mother, for instance, whose medical condition was the cause of the Canadian
authorities' refusal to allow her (and Ms Kotelenets stepfather) into Canada,
could have explained in her own words her current medical situation in light of
the up-dated medial report filed by Ms Kotelenets. Furthermore, she could
have provided her own perspective on the hardship caused by the separation with
her daughter and grand-children living in Canada. As for Ms Kotelenets' two
sons, they too could have brought to the case their own perspective on the
importance of having their grand-parents in Canada and on their relationship
with them since their childhood. In a humanitarian and compassionate considerations
analysis, which turns on the balancing of a certain number of factors, it is
hard to imagine that none of these three witnesses could have added something
relevant to that analysis.
29 In
Baker v Canada (Minister of Citizenship and Immigration), [1999] 2 SCR 817, the Supreme Court of Canada reinforced that the
concept of procedural fairness "is eminently variable and its content is
to be decided in the specific context of each case" (Baker, at para 21). It emphasized that in
determining what is the content of the duty of fairness in a given set of
circumstances, consideration shall be given to the underlying notion "that
the purpose of the participatory rights contained within the duty of procedural
fairness is to ensure that administrative decisions are made using a fair and
open procedure, appropriate to the decision being made and its statutory,
institutional and social context, with an opportunity for those affected by the
decision to put forward their views and evidence fully and have them considered by the decision-maker" (Baker, at para 22, my emphasis).
30 As
stated by my colleague Justice Robert Barnes in Wang, above, at para 15, the right to make one's case is subject to
reasonable limitations but those limitations, when they are the result of the
exercise of discretion, are to be made and applied in a principled way:
·
Nevertheless, it is well
understood that the exercise of discretion by a decision-maker to refuse to
hear evidence on behalf of an interested party must be carried out in a
principled way even where a party has not observed a non-mandatory procedural
prerequisite. These points are duly noted by David J. Mullan in his text
Administrative Law (Toronto: Irwin Law, 2001), where, at page 291, he discussed
the elements of proper decision-making in this context of procedural
fairness:
·
Administrative tribunals and
agencies have control over the conduct of their proceedings and this includes
the ability to place limits on the right of parties to adduce evidence and to
make submissions in support of their position. Without such authority, decision
makers would be in the thrall of anyone anxious to disrupt the timely operation
of the administrative process. Nonetheless, the exercise of these powers is
conditioned by a number of considerations. Generally, it will depend on an
appropriate judgment by a tribunal that further evidence or submissions should
not be permitted on the basis of inadmissibility, irrelevance, or repetition.
An erroneous assessment on any of these bases can lead to a reviewable denial
of procedural fairness.
·
Far more controversial, however,
is the extent of the entitlement of tribunals to limit participatory rights
simply by reference to considerations of efficiency and the need for the
expeditious carrying out of the statutory mandate. Indeed,
even in the common situation where the relevant legislation provides that a
tribunal is to proceed expeditiously, courts have been reluctant to allow this
a basis for denying the right to call witnesses who may add something of
relevance to the matter under consideration. There is
also precedent condemning a policy of confining hearings to a set length at
least when it can be established that rigid adherence to the policy in the
particular case would potentially affect the normal natural justice
entitlements of a participant. (Emphasis in original)
31 Here,
the Applicant had complied with the requirements of the Immigration
Appeal Division Rules by providing the IAD in due time
with her witness information along with a brief statement of the purpose and
substance of the witnesses testimony and by requesting an interpreter for her
mother's testimony. According to these Rules, it is where an appellant fails to provide witness information in
due time that the IAD is expressly empowered to decide whether to allow a
witness to testify.
32 In
such context, Ms Kotelenets was entitled to expect that she would be in a
position to fully present her case to the IAD. This is not what happened. Being
a self-represented party in an immigration law context, Ms Kotelenets was
entitled to some -- if not every possible -- leeway to present her case. In
such cases, the duty of procedural fairness may actually be more onerous
because self-represented parties cannot rely on counsel to protect their
interests (Nemeth v Minister of Citizenship and
Immigration, 2003 FCT 590, 233 FTR 301, at para 13; Law v Canada (Minister of Citizenship and Immigration), 2007 FC 1006, at paras 15-19; Kamtasingh v
Canada (Minister of Citizenship and Immigration), 2010
FC 45).
33 Although
she had done everything that was required of her in that proceeding, she was
not afforded any leeway by the IAD. A reading of the transcript of the hearing
shows that Ms Kotelenets seemed defenceless vis-à-vis the IAD's inquiry as to
whether there was really a need for her to call witnesses. One could say that
she was totally taken by surprise. In my view, this contributed to the IAD
crossing the line in respect of the duty of procedural fairness it owed to Ms
Kotelenets.
34 Finally,
although one could argue, as does the Respondent, that the evidence provided by
Ms Kotelenets was sufficient to dispose of her appeal, the fact the evidence
from the witnesses she wanted to call might not assist her case is not a valid
reason for refusing to hear it (Timpauer v Air Canada, [1986] 1 FC 453). To dismiss witnesses solely based on the fact that
the IAD believed the Applicant's testimony is an error in the qualification of
the central issue of the case. The IAD rightly pointed to the factors which
were to be considered in a special relief case. Notably, they included, in this
case, the relationship between the Applicant and her mother, the reasons for
sponsorship, the situation of both the Applicant and her mother, the existence
of dependency between the two, and the hardship the family would suffer by not
being reunited. Therefore, when assessing humanitarian and compassionate
considerations that would allow for special relief, the IAD must consider the
evidence provided on the above factors. It is clear, in my view, that some of
the witnesses Ms Kotelenets wished to call could have offered evidence or
additional concerns and facts relevant to the assessment the IAD had to make.
35 In
refusing to hear any of the four witnesses, the IAD denied the Applicant her
"day in court", did not pay enough attention to the fact she was
self-represented and had complied with the procedures available to her under
the Rules governing the calling of witnesses, and thus prevented her from presenting
her case fully and in its entirety. As my colleague Justice Barnes said in Kamtasingh, above, "this is a situation
where the duty to allow [the applicant] to fully present his case was
sacrificed for the desire for administrative efficiency. That is not a
permissible trade-off" (see also Singh v Canada
(Minister of Employment and Immigration), [1985] 1 SCR
177, [1985] SCJ No. 11 (QL) (SCC) at para. 70). In my view, this is what
happened in the present case.
36 For
these reasons, I find that the IAD breached the duty of procedural fairness
owed to Ms Kotelenets. A new hearing before a different member of the IAD is
therefore warranted.
37 No
question of general importance has been proposed by the parties. None will be
certified.
JUDGMENT
THIS COURT'S JUDGMENT is that the application for judicial review is granted. The matter is
referred back to the IAD so that a new hearing may be held before a differently
constituted panel. No question is certified.
LeBLANC J.
