Osgoode Hall Law School of York University Osgoode Digital Commons LLM Theses Theses and Dissertations 10-1-2014 Recovering the Promise of Public Truth: Juridification and the Loss of Purpose in Public Inquiries Jessica Mckeachie Follow this and additional works at: http://digitalcommons.osgoode.yorku.ca/llm Part of the Administrative Law Commons Recommended Citation Mckeachie, Jessica, "Recovering the Promise of Public Truth: Juridification and the Loss of Purpose in Public Inquiries" (2014). LLM Theses. 13. http://digitalcommons.osgoode.yorku.ca/llm/13 This Thesis is brought to you for free and open access by the Theses and Dissertations at Osgoode Digital Commons. It has been accepted for inclusion in LLM Theses by an authorized administrator of Osgoode Digital Commons. RECOVERING THE PROMISE OF PUBLIC TRUTH: JURIDIFICATION AND THE LOSS OF PURPOSE IN PUBLIC INQUIRIES JESSICA MCKEACHIE A THESIS SUBMITTED TO THE FACULTY OF GRADUATE STUDIES IN PARTIAL FULFILMENT OF THE REQUIREMENTS FOR THE DEGREE OF MASTER OF LAWS GRADUATE PROGRAM IN LAW YORK UNIVERSITY, TORONTO, ONTARIO AUGUST 2014 © Jessica McKeachie, 2014 Abstract My intention in this work is to investigate the apparent disconnect between the intended social purposes of inquiries and the impact pressures of juridification have had on them, and consider what steps inquiries may take to resist these pressures. Public inquiries, formerly relied on as an alternative to criminal and civil proceedings and as a means to engage the public on issues of policy, now seem to exhibit more intense procedures akin to those found in the alternative processes they were designed to resist. Under increasing juridification pressures, what function should public inquiries fulfil? In short, my aim is to explore our understanding of public inquiries and the implications of the trend towards juridification is having on the ability of public inquiries to fulfil their social and policy functions. ii Table of Contents Abstract .......................................................................................................................................................... ii Table of Contents ................................................................................................................................... .iii Introduction .................................................................................................................................................. 1 Part 1: Purpose of Public Inquiries .................................................................................................. 4 History of Public Inquiries ............................................................................................................................... 4 Development of Public Inquiries in Canada: Provincial and Federal Legislation ........... 10 Characteristics of Public Inquiries ........................................................................................................... 12 Policy Inquiries ............................................................................................................................................. 13 Investigative Inquiries ............................................................................................................................... 16 The Roles of Public Inquiries in Canadian Society ......................................................................... 19 Legal alternative to criminal trial ......................................................................................................... 19 Political alternatives to governmental decision making .......................................................... 21 Part 2: Juridification and Due Process ....................................................................................... 23 Juridification in other areas of law ........................................................................................................... 25 Evolution of the Criminal Trial .................................................................................................................... 26 The “due process explosion” in administrative law ......................................................................... 31 Key features of the juridification of Public inquiries ........................................................................ 38 Conduct of Lawyers at Inquiries .......................................................................................................... 40 Findings of Misconduct ............................................................................................................................ 43 The Role of Evidence at Inquiries ........................................................................................................... 47 The Commissioner recedes ........................................................................................................................ 51 Part 3: Case studies ............................................................................................................................. 57 The Walkerton Inquiry .................................................................................................................................... 58 Lawyers ............................................................................................................................................................ 61 Possibility of criminal charges .............................................................................................................. 61 Evidence .......................................................................................................................................................... 63 Role of the Commissioner ...................................................................................................................... 64 The Missing Women Commission of Inquiry ..................................................................................... 65 Evidence .......................................................................................................................................................... 68 Lawyers ............................................................................................................................................................ 71 Part 4: Downsides of the Push towards Formality ................................................................ 77 Impact of Adversarial Pressures on Inquiries .................................................................................... 78 iii Leaving adversarialism at the door – Study Commissions ........................................................ 84 Truth and Reconciliation Commissions as an Alternative to Public Inquiries ................... 87 Conclusion ................................................................................................................................................. 97 Bibliography ........................................................................................................................................... 100 iv Introduction Public inquiries have a long and influential history in Canada. Generally viewed as productive and positive process with the potential to have a profound impact on policy development, inquiries are often turned to in the wake of scandal and tragedy to provide the public with answers. Inquiries such as the often praised Berger Inquiry from the 1970s and more recently the Walkerton Inquiry are examples of inquiries that not only provided the government with useful and impactful recommendations but also succeeded in engaging and informing the public. Not all inquiries have, however, been able to achieve the same success. Inquiries increasingly face new and complex pressures from the public for more transparency and involvement and from the legal profession to ensure the rights and privacy of those involved. As a result, inquiries are becoming more complex and it is becoming more difficult for inquiries to find the appropriate balance between achieving their mandate efficiently and comprehensively while balancing juridification pressures. The challenges faced by recent inquiries, such as the Missing Women Commission of Inquiry1, are not exceptions, rather they reflect only a few of the increasing number of difficulties and criticisms that inquiries have faced in recent years. While inquiries are often lauded for their flexible and less court-like nature, these advantages are also a 1 The author of this thesis was Research Counsel for the Missing Women Commission of Inquiry from October 2010 until August 2012. Additionally, she worked on the Braidwood Commissions of Inquiry as a Law and Policy Researcher from August 2008 until December 2009. Although work on these inquiries provoked the author's interest in the topic of public inquiries, this thesis was based solely on research conducted for this thesis. All opinions expressed are solely those of the author and based on research of publicly available sources and are cited throughout the paper. 1 significant area of criticism for many observers. Many inquiries looking in to tragic or controversial events will often require some investigation and review of the actions of individuals and organizations. The coercive powers of inquiries undoubtedly infringes on the personal lives of individuals involved in an inquiry, however, they do so without the protections generally associated with criminal trials and civil litigation. My intention in