MILITARY ADMINISTRATIVE LAW MANUAL A-LG-007-000/AF-010 Military Administrative Law Manual Custodian: JAG 2008-10-01 i A-LG-007-000/AF-010 MILITARY ADMINISTRATIVE LAW MANUAL PREFACE A-LG-007-000/AF-010 Military Administrative Law Manual is issued under the authority of the Judge Advocate General. The primary purpose of this manual is to provide Commanding Officers and staff officers with a consolidated reference that outlines many of the principles of military administrative law. It will also serve as a resource for the other members of the Canadian Forces who are most affected by the application of policies and the interpretation of law. The Department of National Defence and the Canadian Forces are writing and re-writing policies at an unprecedented rate, due largely to our efforts to replace Canadian Forces Administrative Orders (CFAO) with Defence Administrative Orders and Directives (DAOD). As these policies evolve, so too will this manual. If this manual conflicts with a current law, regulation, order or directive, then the law, regulation, order or directive will govern. Individual circumstances will sometimes require a greater degree of analysis than is provided here. This manual complements, but does not substitute, advice from a lawyer. Unit legal advisors remain available to assist in the interpretation and explanation of CF policies. The responsibility for updating this publication will fall to the Canadian Forces Military Law Centre. Please therefore address any comments or questions relating to its content or currency to: Director Canadian Forces Military Law Centre Canadian Defence Academy PO Box 1700 Station Forces 18 Vérité Avenue Kingston, ON K7K 7B4 ii MILITARY ADMINISTRATIVE LAW MANUAL A-LG-007-000/AF-010 PART I – THE PARAMETERS OF ADMINISTRATIVE LAW IN THE CF CHAPTER 1 – LEGAL AND POLITICAL FRAMEWORK AFFECTING THE CF Section 1 - The Rule of Law....................................................................................1-1 General...............................................................................................1-1 Section 2 - The Canadian Political System...........................................................1-2 Form of Government...........................................................................1-2 Legislative Branch of Government .....................................................1-3 Parliamentary Government.................................................................1-3 The Governor General........................................................................1-3 The Senate .........................................................................................1-3 The House of Commons.....................................................................1-4 Executive Branch of Government.......................................................1-4 Prime Minister.....................................................................................1-5 Ministers: With Portfolio .....................................................................1-5 The Cabinet ........................................................................................1-5 The Governor General in Council.......................................................1-6 The Judiciary ......................................................................................1-6 The Supreme Court of Canada ..........................................................1-6 The Federal Courts of Canada ...........................................................1-6 The Court Martial Appeal Court of Canada ........................................1-7 Provincial Courts.................................................................................1-7 Section 3 - Provincial Governments......................................................................1-7 Provincial Legislatures........................................................................1-7 Section 4 - The Department of National Defence and Canadian Forces ..........1-8 General ...............................................................................................1-8 Department of National Defence ........................................................1-8 Canadian Forces ................................................................................1-8 Minister of National Defence...............................................................1-9 Deputy Minister of National Defence ..................................................1-9 Chief of the Defence Staff.................................................................1-10 Judge Advocate General ..................................................................1-10 Canadian Forces Legal Advisor .......................................................1-10 National Defence Headquarters .......................................................1-10 Context..............................................................................................1-10 Section 5 - Canadian Legal Framework ......................................................... ….1-11 Constitution Act, 1867.......................................................................1-11 Canadian Charter of Rights and Freedoms......................................1-12 Statutes.............................................................................................1-13 Regulations.......................................................................................1-13 Orders in Council ..............................................................................1-14 Orders, Directives and Instructions ..................................................1-14 Section 6 - Legal Framework of DND and the CF ..............................................1-14 General .............................................................................................1-14 Section 7 - Obligations and Conditions of Service............................................1-16 Concepts of Service and Active Service...........................................1-16 Section 8 - References ..........................................................................................1-17 Legislation.........................................................................................1-17 Regulations.......................................................................................1-17 Orders, Directives and Instructions ..................................................1-18 Jurisprudence ...................................................................................1-18 Secondary Material...........................................................................1-18 iii A-LG-007-000/AF-010 MILITARY ADMINISTRATIVE LAW MANUAL CHAPTER 2 – ADMINISTRATIVE LAW IN THE CF Section 1 - Nature of Administrative Law .............................................................2-1 Section 2 - Judicial Review.....................................................................................2-2 Judicial Review of Administrative Action – General ...........................2-2 Legal Status of CF Decision-Makers ..................................................2-3 Judicial Remedies...............................................................................2-4 Standard of Review ............................................................................2-4 Section 3 - General Principles of Procedural Fairness .......................................2-5 Historical Development of Natural Justice and the Duty to be Fair ....................................................................................2-5 Canadian Application of Procedural Fairness ....................................2-6 Section 4 - Procedural Fairness in the CF ............................................................2-7 Reasonable Apprehension of Bias .....................................................2-8 Notice..................................................................................................2-9 Right to Make Representations ..........................................................2-9 Disclosure .........................................................................................2-11 Duty to Give Reasons.......................................................................2-11 Standard of Proof for Decision-Makers ............................................2-12 Section 5 - Applying Procedural Fairness to CF Decision-Making ..................2-12 Section 6 - References ..........................................................................................2-14 Legislation.........................................................................................2-14 Regulations.......................................................................................2-14 Jurisprudence – Administrative Law: General.................................2-14 Jurisprudence – Administrative Law: CF-related.............................2-15 Secondary Material...........................................................................2-16 iv MILITARY ADMINISTRATIVE LAW MANUAL A-LG-007-000/AF-010 PART II – INSTITUTIONAL LEGAL ISSUES IN THE ADMINISTRATION OF THE CF CHAPTER 3 – ADMINISTRATIVE INVESTIGATIONS Section 1 - Introduction ..........................................................................................3-1 Primary Purpose Test.........................................................................3-1 Section 2 - Informal Investigations........................................................................3-2 Section 3 - Summary Investigations......................................................................3-3