Making Sense of Law Reform- A Case Study of Workers' Compensation Law Reform in Ontario 1980 to 2012 Andrew King Faculty of Law, University of Ottawa/ Université d'Ottawa A Thesis Submitted in Partial Fulfillment of the Requirements for the Degree of Masters of Law © Andrew King, Ottawa, Canada 2014 TABLE OF CONTENTS Abstract ...................................................................................................................................... i Résumé .................................................................................................................................... iii Acknowledgements ................................................................................................................... v Acronyms ................................................................................................................................. vi Introduction ............................................................................................................................... 1 The Experience of Permanently Disabled Workers as a Starting Point ................................ 4 Methodology ......................................................................................................................... 6 Part One. A Legal Framework for Understanding Law Reform .............................................. 9 1(a). Legal Theory ................................................................................................................. 9 Access to Justice ............................................................................................................... 9 Law and Social Movements ............................................................................................ 14 Economic Analysis of Law ............................................................................................. 20 Therapeutic Jurisprudence .............................................................................................. 29 1(b). Adjudication Principles .............................................................................................. 33 Statutory Interpretation ................................................................................................... 33 Administrative Law ......................................................................................................... 38 The Board on the Edge of Reform ...................................................................................... 48 Part Two. A Description of Law Reform .............................................................................. 50 2(a). 1980-1994 Weiler Reforms – “Finding the Balance” ............................................. 53 Substantive Change to Benefits .................................................................................. 57 Governance ................................................................................................................. 58 Appeals ........................................................................................................................ 59 Workers’ Compensation Appeals Tribunal(WCAT) .............................................. 60 Adjudication ................................................................................................................ 65 2(b). 1994-1997 Changing Priorities ............................................................................... 68 Governance ................................................................................................................. 68 Appeals ........................................................................................................................ 69 2(c). 1997-2004 Jackson Reforms “Turning to Face the Employer” .............................. 71 Substantive Changes to Benefits ................................................................................. 73 Governance ................................................................................................................. 75 Appeals ........................................................................................................................ 79 Workplace Safety and Insurance Tribunal (WSIAT) .............................................. 80 The Role of Policy .................................................................................................. 85 Adjudication ................................................................................................................ 87 Fair Practices Commission ...................................................................................... 89 2(d). 2004-2009 System Failures .................................................................................... 90 Substantive Changes to Benefits ................................................................................. 91 System Failures ........................................................................................................... 92 LMR and the Failure of Self Reliance .................................................................... 92 Experience Rating Exposed .................................................................................... 94 The Acknowledgement of Stigma ........................................................................... 96 The Transfer of Prevention ..................................................................................... 97 2(e). 2010-2012 Auditors’ Efficiency: “Correctness”..................................................... 97 Governance ............................................................................................................... 100 Appeals ...................................................................................................................... 100 Adjudication .............................................................................................................. 102 Part Three. The Impact of Ontario Reforms on Permanently Disabled Workers ................ 109 3(a). Economic Status of Permanently Disabled Workers ................................................ 110 Public Sources ............................................................................................................... 112 Research ........................................................................................................................ 112 3(b). Appeals and Adjudication ........................................................................................ 122 Public Sources ............................................................................................................... 122 Research ........................................................................................................................ 123 3(c) Analysis ..................................................................................................................... 130 Conclusions ........................................................................................................................... 133 Legal Theory ..................................................................................................................... 134 Weiler Reforms ............................................................................................................. 134 Jackson Reforms ........................................................................................................... 137 System Failures ............................................................................................................. 138 Auditor General and Correctness .................................................................................. 139 Adjudication Principles ..................................................................................................... 140 Statutory Interpretation: What became of the Meredith Principles? ............................. 140 Does the Board Remain Independent of Government Interference? ........................ 141 Administrative Law ....................................................................................................... 143 Did the Independent Tribunal provide a Solution? ................................................... 145 What does this Mean for Injured Workers? ...................................................................... 146 Bibliography .......................................................................................................................... 148 LIST OF FIGURES Figure 1 Reform Timeline ………………………………………………………………….52 LIST OF TABLES Table 1 Indicators Summary ………………………………………………………………114 APPENDICES Appendix 1 Leadership of the Board ………………………………………………………159 Appendix 2 Governance……………………………………………………………………161 Appendix 3 WSIB FIPPA Data…………………………………………………………… 167 Appendix 4 WSIB FIPPA Document Requests……………………………………………188 i Abstract This thesis is a case study from 1980 to 2012 of law reform applied to workers’ compensation in Ontario. It aims to understand the promise of law reform and its implementation from the standpoint of injured workers. The study is structured in three parts. Part One constructs an analytical framework drawing on legal theories and principles of adjudication. It provides a brief history of the Ontario Workers’ Compensation Board, its powers and adjudicative practices prior to the reforms. Part Two summarizes reform in Ontario’s workers’ compensation law from 1980 to 2012. The description is organized into five periods reflecting significant shifts in direction. It focuses