The Right to Access to Justice: Expanding the Court’s Protections Against a Complex Law by Meghan Menzies A Thesis submitted to the Faculty of Graduate Studies of The University of Manitoba in partial fulfillment of the requirements of the degree of MASTER OF LAWS Robson Hall, Faculty of Law University of Manitoba Winnipeg Copyright @ 2020 by Meghan Menzies Abstract The Canadian legal system has become increasingly inaccessible to those it governs. Cost, delay and complexity have created barriers preventing meaningful access to justice. To date the courts have recognized cost and delay as barriers that trigger a constitutional right to access to justice. This thesis argues that this constitutional right should be extended to include the barrier of complexity. Grounded in an expectation that Canadians understand both their legal rights and responsibilities, the complexity of Canadian laws and processes has created a fundamental contradiction where persons are required to adhere to laws that they cannot understand. Using both a qualitative content analysis research approach and a doctrinal analysis research approach, this thesis explores the history of complexity, its impacts on specific populations, and its modern day treatment by courts. It then concludes by providing a legal framework against which the constitutional right to access to justice can be extended to include the barrier of complexity. -i- Dedication To my dad. For always pushing me to grow. To my babes, Ellis and Bobbie. The world is so much better with you in it. -ii- Acknowledgements The completion of this thesis has been the furthest thing from a solo act. Thank you to the community of people who made this possible. Thank you to my mom for your endless hours of babysitting, editing, and encouragement. Thank you to Symon for stepping up so that I could work and focus (and sometimes sleep). Thank you to Heather and Kate for watching the kiddos and helping keep me sane. Thank you to Randy, Lizette and Sable for stepping in when I needed your help. Thank you to Lorna, who, throughout this process met me where I was at and guided me through. Thank you to Shauna and Gerard who provided thoughtful and generous feedback, helping bring this work to life. And finally, thank you to Dr. Gerald W. Schwartz, Mr. Martin Freedman and Dr. Mark and Mrs. Sharon Evans for generously supporting my education. Two children and a global pandemic later - this would not have been possible without all of you. -iii- Table of Contents Abstract................................................................................................................................. i Dedication ............................................................................................................................ ii Acknowledgements .............................................................................................................. iii Table of Contents ................................................................................................................ iv List of Tables ....................................................................................................................... vi Chapter 1: Starting the Conversation .................................................................................. 1 Introduction ..................................................................................................................................1 Outline ..........................................................................................................................................3 Case example ................................................................................................................................3 Conclusion ....................................................................................................................................6 Chapter 2: A Complex Legal System is a Barrier to Access to Justice - The Problem ......... 8 Introduction ..................................................................................................................................8 Theory & Methodology .................................................................................................................9 A review of the literature ............................................................................................................ 14 Conclusion ..................................................................................................................................30 Chapter 3: Accessible Legal Language - A Tale as Old as Time ........................................ 31 Introduction ................................................................................................................................31 The law’s historic resistance to simplicity ................................................................................... 31 Conclusion ..................................................................................................................................43 Chapter 4: A Complex Legal System is a Barrier to Access to Justice - The Impact .......... 45 Introduction ................................................................................................................................45 Impacts of a complex legal system ............................................................................................... 45 The impacts of a complex legal system vary by demographic ...................................................... 55 Conclusion ..................................................................................................................................67 Chapter 5: A Tale of Two Trilogies .................................................................................... 68 Introduction ................................................................................................................................68 Rule of law ..................................................................................................................................69 The access to justice trilogy ......................................................................................................... 70 Cost, delay and complexity: a trilogy of barriers ......................................................................... 86 Conclusion ................................................................................................................................ 101 Chapter 6: Next steps - Reimagining a Complex Legal System ........................................ 103 Introduction .............................................................................................................................. 103 The legal community’s role in seeking a remedy ....................................................................... 103 A right to a remedy ................................................................................................................... 105 Possible remedies ...................................................................................................................... 111 Conclusion ................................................................................................................................ 119 -iv- Chapter 7: Conclusion ..................................................................................................... 120 Bibliography..................................................................................................................... 122 -v- List of Tables Table 2.1: Total Number of People Experiencing One or More Legal Problems ................. 16 Table 2.2: Number of People Experiencing One or More Legal Problems Within Problem Types ............................................................................................................................................ 17 Table 2.3: Approved Applications for Civil Legal Aid, 1992-2012 ........................................ 18 Table 2.4: Certificate Eligibility and LIM (Single Person Household) .................................. 19 Table 2.5: Literacy in Canada ................................................................................................... 26 Table 4.1: Taking no Action – First Problem ........................................................................... 49 -vi- Chapter 1: Starting the Conversation It is strange that free societies should thus arrive at a situation where their members are governed from cradle to grave by texts they cannot comprehend.1 Introduction Canada’s legal system is inaccessible to many of those it is said to serve.2 This inaccessibility limits the ability of Canadians to meaningfully engage with the law, therefore preventing the provision of legal remedy and the development of legal precedent. In an effort to address and better understand this problem over the past decade a number of different national reports have been released that focus on access to justice.3 These reports have identified key barriers as including cost,4 delay5 and complexity6 and have consistently concluded that 1 Francis Bennion, Statute Law, 2nd ed (London: Oyez Longman, 1983) at 8. 2 See Rt Hon Beverly McLachlin, PC, “The Challenges We Face”, citing the former Chief Justice of Ontario (remarks presented at Empire Club of Canada, Toronto, 8 March 2007), online: <http://www.scc- csc.gc.ca/court/ju/spe-dis/bm07-03-08-eng.asp> [McLachlin, “The Challenges we face”] (“access to justice is the most important issue facing the