Canada Gazette, Part I, Volume 151, Number 36: Rules Amending the Federal Courts Citizenship, Immigration and Refugee Protection Rules

September 9, 2017

Statutory authorities

Citizenship Act
Immigration and Refugee Protection Act

Sponsoring agency

Courts Administration Service

REGULATORY IMPACT ANALYSIS STATEMENT

(This statement is not part of the Rules.)

Issues

There is a need for amendments to the Federal Courts Citizenship, Immigration and Refugee Protection Rules (“Rules”) to address a number of issues of practical, procedural and legal concern.

Background

The Rules Committee of the Federal Court of Appeal and the Federal Court (“Rules Committee”) is a committee established under the Federal Courts Act that, with the approval of the Governor in Council, may make general rules of procedure. The Rules Committee consists of the Chief Justice of the Federal Court of Appeal and the Chief Justice of the Federal Court; three judges designated by the Chief Justice of the Federal Court of Appeal, and five judges and one prothonotary designated by the Chief Justice of the Federal Court; the Chief Administrator of the Courts Administration Service; five members from the bar (designated by the Attorney General of Canada, after consultation with the Chief Justice of the Federal Court of Appeal and the Chief Justice of the Federal Court); and the Attorney General of Canada or a representative thereof. These Rules Committee members all consult with their respective groups, whether the private or public bar or the courts, regarding proposals for possible amendments to the Federal Courts Rules or to the Federal Courts Citizenship, Immigration and Refugee Protection Rules.

The Rules Committee holds a meeting twice each year to consider amendment projects. At the meeting held on May 11, 2012, one amendment was identified (ref.: identification of “ghost” representation) that related to the Federal Courts Citizenship, Immigration and Refugee Protection Rules, and so a drafting process was initiated in 2013. At the meeting held on May 30, 2014, a further amendment priority was added (ref.: modernization amendments), and at the meeting held on November 14, 2014, a further amendment priority was added (ref.: simplified procedure to request an anonymity order). At the meeting held on May 29, 2015, a further minor amendment (ref.: Citizenship Act appeals) was proposed. Finally, during the drafting process, a minor amendment (ref.: statement regarding language of hearing) was added so as to ensure consistency with a similar amendment in a separate drafting project (for the Federal Courts Rules). Successive working drafts of the amendment project were discussed by the Rules Committee at its meetings of May 30, 2014, November 14, 2014, November 27, 2015, June 3, 2016, and October 28, 2016. These suggested changes have been synthesized into a single package of amendments.

Objectives

The proposed amendments address five issues, namely, (1) the identification of “ghost” representation; (2) modernization amendments; (3) a simplified procedure to request an anonymity order; (4) the filing of a statement regarding the language of the hearing and its materials; and (5) the modification of the definition of an appeal to reflect changes under the Citizenship Act.

Description

The proposed amendments to the Rules are set out below:

• (1) Identification of “ghost” representation — Rule 5: The proposed amendment to Rule 5(1)(j) and the associated forms would require that a party identify the name of the person other than the party's lawyer who prepares, for a fee, the application for leave and judicial review.
• (2) Modernization amendments
  • Rule 4.1: This new provision consolidates a number of separate provisions regarding the deemed receipt of documents that are “sent,” including the option for electronic transmission, and aims to align these Rules with the modernized Federal Courts Rules regarding deemed receipt of documents that are “served” (subsections 9(3) and (4), 14(5) and 15(3)). Following the transfer of the content from subsections 9(3) and (4) to new Rule 4.1, subsections 9(1) and (2) were revised to simplify the language and reflect modern drafting convention.
  • Rule 11(b): The English version is amended to remove the word “written,” which is redundant in the context of a memorandum of argument.
  • Rule 14(3): Subsection (3) was revised to simplify the language and reflect modern drafting convention.
  • Rules 15(2) and (3): Subsection (3) is repealed (replaced by new Rule 4.1), and subsection (2) is revised to simplify the language and reflect modern drafting convention.
  • Rule 17(b): The English version uses the term “papers” while the French just refers to “documents.” In a context that might include both print and electronic documents, it is appropriate to remove “papers” from the English version and use “documents” as in the French.
• (3) Simplified procedure to request an anonymity order — Rules 8.1 and 10(2): New Rule 8.1 creates a simplified procedure for a party to seek from the Court an anonymity order — a limited form of confidentiality. Subparagraph (2)(a)(vi) of Rule 10 is added to reflect that a request for an anonymity order under Rule 8.1 should be included in the perfected applicant's record filed under Rule 10.
• (4) Statement regarding the language of the hearing and materials — Rule 10(2)(a)(vii): A further minor addition of subparagraph (2)(a)(vii) to Rule 10 requires the applicant to file a statement indicating whether the hearing will be in English or French, or partly in English and partly in French, and whether the materials in the court record will be in English or French, or partly in English and partly in French.
• (5) Citizenship appeal — Rule 2: The proposed amendment to the definition of an “appeal” in the Rules would add appeals referred to in section 10.7 of the Citizenship Act.

“One-for-One” Rule

The “One-for-One” rule does not apply to this proposal, as the proposed amendments would not increase or reduce the administrative costs.

Small business lens

The small business lens does not apply, as the proposed amendments do not impose any additional costs on business.

Consultation

Section 46 of the Federal Courts Act provides that the rules concerning the practice and procedure before the Federal Court of Appeal and the Federal Court are made by the Rules Committee, subject to the approval of the Governor in Council.

The proposed procedural amendments have been recommended by the Rules Committee.

Rationale

Rule 5 requires lawyers to be named, but applicants sometimes file an application that has been prepared by someone other than a lawyer. The rule and associated forms are amended to require that a party identify the person who prepares, for a fee, the application, if that person is someone other than the party's lawyer.

The proposed modernization amendments to the Rules remove obstacles to the use of information technologies, and amend some language to reflect modern drafting convention, without substantially altering the effect of the Rules.

The procedure for requesting confidentiality requires that a motion record be filed. However, for some applicants, the costs associated with filing a motion record may stop them from seeking confidentiality that they consider necessary. The proposed simplified procedure (i.e. resulting in reduced costs) would allow parties to seek a limited form of confidentiality but without sealing the Court record.

The amendment to Rule 10 to require a statement regarding the language of the hearing and materials ensures that the appropriate judge is assigned to hear the application.

Finally, section 10.7 of the Citizenship Act came in force on May 28, 2015, and provides for a right of appeal of a decision made under section 10.1 or 10.5. However, the definition of “appeal” under the Rules does not refer to an appeal under section 10.1 or 10.5, which leaves a gap in the regulatory framework.

Implementation, enforcement and service standards

The amended Rules will come into force on the day on which they are registered.

Contact

Andrew Baumberg
Secretary of the Rules Committee of the Federal Court of Appeal and the Federal Court
Ottawa, Ontario
K1A 0H9
Telephone: 613-947-3177
Fax: 613-943-0354
Email: Andrew.Baumberg@cas-satj.gc.ca

PROPOSED REGULATORY TEXT

Notice is given that the rules committee of the Federal Court of Appeal and the Federal Court, pursuant to section 22.3 (see footnote a) of the Citizenship Act (see footnote b) and subsection 75(1) (see footnote c) of the Immigration and Refugee Protection Act (see footnote d) and subject to the approval of the Governor in Council, proposes to make the annexed Rules Amending the Federal Courts Citizenship, Immigration and Refugee Protection Rules.

Interested persons may make representations in writing concerning the proposed Rules within 60 days after the date of publication of this notice. All such representations must cite the Canada Gazette, Part I, and the date of publication of this notice, and be addressed to Andrew Baumberg, Secretary to the rules committee of the Federal Court of Appeal and the Federal Court, 90 Sparks Street, 12th Floor, Ottawa, Ontario K1A 0H9 (tel.: 613-947-3177; fax: 613-943-0354; email: andrew.baumberg@fct-cf.gc.ca)

Ottawa, August 15, 2017

Daniel Gosselin
Chief Administrator
Courts Administration Service

Rules Amending the Federal Courts Citizenship, Immigration and Refugee Protection Rules

Amendments

1 The definition appeal in Rule 2 of the Federal Courts Citizenship, Immigration and Refugee Protection Rules (see footnote 1) is replaced by the following:

appeal means an appeal referred to in section 10.7 or paragraph 22.2(d) of the Citizenship Act or paragraph 74(d) of the Immigration and Refugee Protection Act. (appel)

2 The Rules are amended by adding the following after Rule 4:

Deemed Receipt of Documents

4.1 (1) A document that is required to be sent under these Rules is deemed to be received by the recipient

• (a) if it is sent by ordinary mail, on the tenth day after the day on which it is mailed;
• (b) if it is sent by registered mail or courier, on the day of delivery that is indicated on the post office or courier delivery receipt, as the case may be; or
• (c) if it is sent by electronic transmission or fax, on the day on which it is sent.

(2) However, if the day on which the document is deemed to be received is a holiday or, in the case of a document that is sent by electronic transmission or fax, the document is sent after 5 p.m. at the recipient's local time, the document is deemed to be received on the next day that is not a holiday.

3 Subrule 5(1) of the Rules is amended by striking out “and” at the end of paragraph (h) and by replacing paragraph (i) with the following:

• (i) the signature, name, address and telephone number of the applicant's solicitor or, if the applicant acts in person, his or her signature, name, address for service in Canada and telephone number;
• (j) if the application for leave is prepared for a fee by a person other than the applicant's solicitor, the name, address and telephone number of that person; and
• (k) if the applicant consents to the electronic service of documents, the applicant's electronic address as set out in Form 141A of the Federal Courts Rules.

4 The Rules are amended by adding the following after Rule 8:

Anonymity Order

8.1 (1) A party to an application for leave may make a written request, in Form IR-5 as set out in the schedule, that the court make an order that all documents that are prepared by the Court and which may be made available to the public be amended and redacted to the extent necessary to make the party's identity anonymous.

(2) A party who opposes the request may, in that Form IR-5, make a written objection to the request.

(3) A request or an objection to a request must, as the case may be,

• (a) be served and filed together with the application for leave or the notice of appearance; and
• (b) set out the grounds for the request or objection and, if the party intends to rely on facts that do not appear on the Court file, be accompanied by an affidavit that sets out those facts.

(4) A request shall be determined at the same time, and on the basis of the same materials, as the application for leave.

(5) The Court may make an order under subrule (1) if, after taking the public interest in open and accessible court proceedings into account, the Court is satisfied that the party's identity should be made anonymous.

(6) An order under this rule continues in effect until the Court orders otherwise, including for the duration of any appeal of the proceeding and after final judgment.

5 Rule 9 of the Rules is replaced by the following:

9 (1) If an application for leave sets out that the applicant has not received the written reasons of the tribunal, the Registry shall, without delay, send the tribunal a request in Form IR-3 as set out in the schedule.

(2) After receiving the request the tribunal shall, without delay,

• (a) send a copy of the decision or order at issue and the written reasons for it, duly certified by an appropriate officer to be correct, to each of the parties, and two copies to the Registry; or
• (b) send a written notice to each of the parties and to the Registry indicating that no reasons were given or reasons were given but not recorded, as the case may be.

6 Subrule 10(2) of the Rules is replaced by the following:

(2) The applicant shall

• (a) serve on every respondent who has filed and served a notice of appearance, a record containing the following, on consecutively numbered pages, and in the following order:
  • (i) the application for leave,
  • (ii) the decision or order, if any, in respect of which the application is made,
  • (iii) the written reasons given by the tribunal, or the notice under paragraph 9(2)(b), as the case may be,
  • (iv) one or more supporting affidavits that verify the facts relied on by the applicant in support of the application,
  • (v) a memorandum of argument that contains concise submissions of the facts and law relied upon by the applicant for the relief proposed in the event that leave is granted,
  • (vi) the request, if any, for an anonymity order under rule 8.1, and
  • (vii) a statement indicating whether the hearing will be in English or French, or partly in English and partly in French, and whether the materials for the hearing will be in English and French, or partly in English and partly in French; and
• (b) file the record, together with proof of service.

7 Paragraph 11(b) of the English version of the Rules is replaced by the following:

• (b) shall serve on the other parties a memorandum of argument which shall set out concise submissions of the facts and law relied upon by the respondent,

8 (1) Subrule 14(3) of the Rules is replaced by the following:

(3) The Registry shall, without delay after an order is made under subrule (2), send a copy of the order to the tribunal.

(2) Subrule 14(5) of the Rules is repealed.

9 Subrules 15(2) and (3) of the Rules are replaced by the following:

(2) The Registry shall, without delay after an order is made under subrule (1), send a copy of the order to the tribunal.

10 Paragraph 17(b) of the English version of the Rules is replaced by the following:

• (b) all relevant documents that are in the possession or control of the tribunal,

11 The schedule to the Rules is amended by replacing the references after the heading “SCHEDULE” with the following:

(Subrules 5(1), 8(1), 8.1(1), 9(1) and 20(1))

12 Form IR-1 of the schedule to the French version of the Rules is replaced by Form IR-1 set out in Schedule 1 to these Rules.

13 Forms IR-3 and IR-4 of the schedule to the Rules are replaced by Forms IR-3 to IR-5 set out in Schedule 2 to these Rules.

Coming into Force

14 These Rules come into force on the day on which they are registered.

SCHEDULE 1

(Rule 12)

Formule IR-1 (règles 5 et 6)

Numéro de dossier de la Cour

COUR FÉDÉRALE

Entre :

(Insérez les nom et prénoms des parties ou du ministre de la Citoyenneté et de l'Immigration ou de tout ministre chargé de l'application de la Loi sur l'immigration et la protection des réfugiés à l'égard de la mesure visée par l'autorisation recherchée)

Demandeur(s)

et

(Insérez les nom et prénoms des parties ou du ministre de la Citoyenneté et de l'Immigration ou de tout ministre chargé de l'application de la Loi sur l'immigration et la protection des réfugiés à l'égard de la mesure visée par l'autorisation recherchée)

Défendeur(s)

Demande d'autorisation et demande de contrôle judiciaire

AU(X) DÉFENDEUR(S)

Le(s) demandeur(s) a(ont) présenté UNE DEMANDE D'AUTORISATION RELATIVE À LA PRÉSENTATION D'UNE DEMANDE DE CONTRÔLE JUDICIAIRE EN APPLICATION :

(Indiquez la disposition sur laquelle la demande en l'espèce est fondée.)

• [ ] DU PARAGRAPHE 22.1(1) DE LA LOI SUR LA CITOYENNETÉ;
• [ ] DU PARAGRAPHE 72(1) DE LA LOI SUR L'IMMIGRATION ET LA PROTECTION DES RÉFUGIÉS.

SAUF AUTORISATION D'UN JUGE, IL SERA STATUÉ SUR CETTE DEMANDE D'AUTORISATION sans comparution en personne des parties, conformément à l'alinéa 22.1(2)c) de la Loi sur la citoyenneté ou à l'alinéa 72(2)d) de la Loi sur l'immigration et la protection des réfugiés.

SI VOUS SOUHAITEZ VOUS OPPOSER À CETTE DEMANDE D'AUTORISATION, l'avocat habile à exercer au Canada qui vous représente ou vous-même devez remplir l'avis de comparution sur la formule IR-2 prévue aux Règles des Cours fédérales en matière de citoyenneté, d'immigration et de protection des réfugiés, le signifier au tribunal administratif et à l'avocat du demandeur ou, si celui-ci agit pour son propre compte, au demandeur lui-même, et le déposer, avec la preuve de la signification, au greffe dans les dix jours suivant la date de signification de la présente demande d'autorisation.

À DÉFAUT, la Cour peut, sans vous adresser un autre avis, statuer sur la présente demande d'autorisation et, si celle-ci est accueillie, sur la demande subséquente de contrôle judiciaire.

Nota : Vous pouvez obtenir auprès de n'importe quel bureau local de la Cour fédérale ou du greffe, à Ottawa, téléphone : 613 992-4238, une copie des règles pertinentes de la Cour, des informations sur le bureau local de celle-ci et tout autre renseignement nécessaire.

Le demandeur demande à la Cour l'autorisation de présenter une demande de contrôle judiciaire de :

(Indiquez la date et les détails de la mesure — décision, ordonnance, question ou affaire — à laquelle se rapporte le contrôle judiciaire et la date à laquelle le demandeur en a été avisé ou en a pris connaissance.)

(Indiquez l'appellation, l'adresse et le numéro de téléphone du tribunal administratif concerné et, si celui-ci était composé de plusieurs personnes, le nom de chacune d'elles.)

(Indiquez le(s) numéro(s) du(des) dossier(s) du tribunal administratif, le cas échéant.)

(Ajoutez le paragraphe ci-après, le cas échéant.)

[Le demandeur demande en outre à la Cour d'accorder, en vertu de l'alinéa 22.1(2)b) de la Loi sur la citoyenneté ou de l'alinéa 72(2)c) de la Loi sur l'immigration et la protection des réfugiés, selon le cas, une prorogation de délai pour déposer et signifier la demande pour les motifs valables suivants :

(Indiquez les motifs valables de la demande de prorogation du délai.)]

Dans le cas où l'autorisation est accordée, le demandeur sollicite le redressement ci-après par voie de contrôle judiciaire :

(Indiquez le redressement expressément sollicité si l'autorisation est accordée, ainsi que les textes de loi et règles invoqués à l'appui.)

Dans le cas où l'autorisation est accordée, la demande de contrôle judiciaire est fondée sur les motifs suivants :

(Indiquez les motifs qui seront développés dans l'argumentation, ainsi que les textes de loi et règles invoqués à l'appui.)

Le demandeur (a ou n'a pas) reçu les motifs écrits du tribunal administratif.

Dans le cas où l'autorisation est accordée, le demandeur propose que la demande de contrôle judiciaire soit entendue à _____(lieu), en (français ou anglais, ou les deux).

_____________________________
(Signature de l'avocat ou du demandeur)

(Nom, adresse et numéro de téléphone de
l'avocat ou du demandeur)

À : (Nom(s) et adresse(s) du(des) défendeur(s))

SCHEDULE 2

(Rule 13)

Form IR-3 (Subrule 9(1))

Court File No.

FEDERAL COURT

Between:

Applicant(s)

and

Respondent(s)

Request to Tribunal

TO: (Name and address of tribunal)

RE: (Set out the complete particulars of the matter — decision or order made, measure taken or question raised — as they appear in the application, with the tribunal's file number(s), if any.)

DATE :

In an application filed on _____, 20 ___, the applicant set out that he or she had not received written reasons for the above-captioned matter.

In accordance with rule 9 of the Federal Courts Citizenship, Immigration and Refugee Protection Rules, you are requested to send, without delay,

• (a) a copy of the decision or order at issue and the written reasons for it, duly certified by an appropriate officer to be correct, to each of the parties and two copies to the Registry; or
• (b) a written notice to each of the parties and to the Registry indicating that no reasons were given or reasons were given but not recorded, as the case may be.

_____________________________
(Signature of Registry Officer)
Name of Registry Officer
Telephone Number

Form IR-4 (Subrule 20(1))

Court File No.

FEDERAL COURT OF APPEAL

Between:

Appellant
(Applicant (or Respondent) in the Federal Court)

and

(name)

Respondent
(Applicant (or Respondent) in the Federal Court)

Notice of Appeal

THE APPELLANT (name) appeals from the judgment of the Honourable (name of judge) of the Federal Court, delivered on (date).

The following serious question(s) of general importance was (were) certified:

(Set out the question(s) certified.)

The question(s) was (were) certified under:

(Select the appropriate provision.)

• [ ]SECTION 10.7 OF THE CITIZENSHIP ACT;
• [ ]PARAGRAPH 22.2(d) OF THE CITIZENSHIP ACT; or
• [ ]PARAGRAPH 74(d) OF THE IMMIGRATION AND REFUGEE PROTECTION ACT.

The appellant seeks the following relief on the determination of the question(s) under section 52 of the Federal Courts Act:

(Set out the relief sought, with reference to the specific provisions in section 52 of the Federal Courts Act relied on.)

The appellant requests that this appeal be heard at_____(place), in the (English and/or French) language.

Dated at________, this____ of_______, 20__.

(Name, address and telephone number of appellant's solicitor)

TO: (Name and address of respondent's solicitor, or respondent if acting in person)

Form IR-5 (Subrules 8.1(1) and (2))

Court File No.

FEDERAL COURT

Between:

Applicant(s)

and

Respondent(s)

Anonymity Order Notice

The (identify party)

[ ]requests that the Court make an order that all documents that are prepared by the Court and which may be made available to the public be amended and redacted to the extent necessary to make the identity of (insert name) anonymous;

[ ]objects to the request for an anonymity order made by (identify party) on (date).

The grounds for the (request or objection) are the following: (Set out grounds and attach supporting affidavit)

Dated at________, this_____ of________, 20__.

(Name, address and telephone number of
party, if acting in person, or the party's solicitor)

[36-1-o]