Bill C-634: An Act to establish a Canadian Environmental Bill of Rights

C-634 Second Session, Forty-first Parliament, 62-63 Elizabeth II, 2013-2014 HOUSE OF COMMONS OF CANADA BILL C-634 An Act to establish a Canadian Environmental Bill of Rights first reading, October 29, 2014 Ms. Duncan (Edmonton—Strathcona) 412144 SUMMARY This enactment establishes the Canadian Environmental Bill of Rights, whose provisions apply to all decisions that emanate from a federal source or are related to federal land or a federal work or undertaking. The purpose of this enactment is to (a) safeguard the right of present and future generations of Canadians to a healthy and ecologically balanced environment; (b) confirm the Government of Canada’s public trust duty to protect the environment under its jurisdiction; (c) ensure all Canadians have access to adequate environmental information, justice in an environmental context and effective mechanisms for participating in environmental decision-making; (d) provide adequate legal protection against reprisals for employees who take action for the purpose of protecting the environment; and (e) enhance public confidence in the implementation of environmental law. Available on the Parliament of Canada Web Site at the following address:http://www.parl.gc.ca TABLE OF PROVISIONSAN ACT TO ESTABLISH A CANADIAN ENVIRONMENTAL BILL OF RIGHTSSHORT TITLE 1.       Canadian Environmental Bill of RightsINTERPRETATION 2.       Definitions 3.       Interpretation 4.       Aboriginal rights 5.       Remedies not repealedPURPOSE 6.       PurposeHER MAJESTY 7.       Binding on Her MajestyAPPLICATION 8.       Scope of application PART 1ENVIRONMENTAL RIGHTS AND OBLIGATIONSRight to Healthy Environment 9.       RightAccess to Information 10.       Right to access environmental information Public Participation 11.       Right to participate in government decision-making in environmental matters 12.       Government's obligationReview of Federal Instruments 13.       Right to request review of Acts, regulations, statutory instruments and policies Investigations of Offences 14.       Right to request investigation 15.       Acknowledgement PART 2REMEDIES AND LEGAL ACTIONSJudicial Review 16.       Right to review a government decisionLegal Actions 17.       Environmental protection action against the Government 18.       Environmental protection action against an individual 19.       Standard of proof 20.       Interim order 21.       Factors to be considered 22.       Remedial provisions 23.       Terms of an order 24.       Order 25.       Costs PART 3EMPLOYEE REPRISAL PROTECTION Application 26.       Federal source or federal work or undertaking Complaint 27.       Filing a complaint PART 4GENERALExamination of Bills and Regulations 28.       Examination by the CommissionerRegulations 29.       Regulations PART 5CONSEQUENTIAL AMENDMENTCanadian Bill of Rights 30.       1960, c. 44 2nd Session, 41st Parliament, 62-63 Elizabeth II, 2013-2014 house of commons of canada BILL C-634 An Act to establish a Canadian Environmental Bill of Rights Whereas Canadians share a deep concern for our environment and recognize its inherent value; Whereas Canadians understand that a healthy and ecologically balanced environment is inextricably linked to the health of individuals, families and communities; Whereas Canadians have an individual and collective responsibility to protect the environment of Canada for the benefit of present and future generations; Whereas Canadians want to assume full responsibility for their environment, and not to pass their environmental problems on to future generations; Whereas Canadians understand the close linkages between a healthy and ecologically balanced environment and Canada’s economic, social, cultural and intergenerational security; Whereas Canadians have an individual and collective right to a healthy and ecologically balanced environment; Whereas action or inaction that results in significant environmental harm could compromise the life, liberty and security of the person and be contrary to section 7 of the Canadian Charter of Rights and Freedoms; Whereas the Government of Canada is the trustee of Canada’s environment within its jurisdiction and is, therefore, responsible for protecting the environment for present and future generations of Canadians; Whereas the Government of Canada has made commitments to the international community on behalf of all Canadians to protect the environment for the benefit of the world; Whereas the Government of Canada's ability to protect the environment is enhanced when the public is engaged in environmental protection; Whereas Canadians seek to enhance and protect their ability to participate directly in environmental decision-making, to access environmental justice and to hold the Government of Canada accountable for the discharge of its environmental protection responsibilities; And whereas Canadians want improved access to courts and administrative tribunals so that individuals, communities and public interest organizations may take action to protect our environment; Now, therefore, Her Majesty, by and with the advice and consent of the Senate and House of Commons of Canada, enacts as follows: SHORT TITLE Short title 1. This Act may be cited as the Canadian Environmental Bill of Rights. INTERPRETATION Definitions 2. The definitions in this section apply in this Act. “Commissioner”« commissaire » “Commissioner” means the Commissioner of the Environment and Sustainable Development appointed under subsection 15.1(1) of the Auditor General Act. “environment”« environnement » “environment” means the components of the Earth and includes (a) air, land and water; (b) all layers of the atmosphere; (c) all organic matter and living organisms; (d) biodiversity within and among species; and (e) the interacting natural systems that include components referred to in paragraphs (a) to (d). “federal land”« territoire domanial » “federal land” means (a) land, including any water, that belongs to Her Majesty in right of Canada, or that Her Majesty in right of Canada has the right to dispose of, and the air and all layers of the atmosphere above and the subsurface below that land; and (b) the following land and areas, namely, (i) the internal waters of Canada as determined under the Oceans Act, including the seabed and subsoil below and the airspace above those waters, and (ii) the territorial sea of Canada as determined under the Oceans Act, including the seabed and subsoil below and the air and all layers of the atmosphere above that sea. “federal source”« source d’origine fédérale » “federal source” means (a) a department of the Government of Canada; (b) an agency of the Government of Canada or other body established by or under an Act of Parliament that is ultimately accountable through a minister of the Crown in right of Canada to Parliament for the conduct of its affairs; or (c) a Crown corporation as defined in subsection 83(1) of the Financial Administration Act. “federal work or undertaking”« entreprises fédérales » “federal work or undertaking” means any work or undertaking that is within the legislative authority of Parliament, including, but not limited to, (a) a work or undertaking operated for or in connection with navigation and shipping, whether inland or maritime, including the operation of ships and transportation by ship; (b) a railway, canal, telegraph or other work or undertaking connecting one province with another, or extending beyond the limits of a province; (c) a line of ships connecting a province with any other province, or extending beyond the limits of a province; (d) a ferry between any province and any other province or between any province and any country other than Canada; (e) airports, aircraft and commercial air services; (f) a broadcast undertaking; (g) a bank; (h) a work or undertaking that, although wholly situated within a province, is before or after its completion declared by Parliament to be for the general advantage of Canada or for the advantage of two or more provinces; and (i) a work or undertaking outside the exclusive legislative authority of the legislatures of the provinces. “healthy and ecologically balanced environment”« environnement sain et écologiquement équilibré » “healthy and ecologically balanced environment” means an environment of a quality that protects human and cultural dignity, health and well-being and in which essential ecological processes are preserved for their own sake, as well as for the benefit of present and future generations. “policy”« politique » “policy” means a program, plan or objective and includes guidelines or criteria to be used in making decisions about the issuance, amendment or revocation of statutory instruments, but does not include an Act of Parliament or a regulation made under an Act of Parliament or other statutory instrument. “polluter pays principle”« principe du pollueur payeur » “polluter pays principle” means the principle that a polluter must bear the cost of measures to reduce pollution based on either the extent of the damage done to society or the extent to which an acceptable level (standard) of pollution is exceeded. “precautionary principle”« principe de prudence » “precautionary principle” means the principle that where there are threats of serious or irreversible damage to the environment, lack of full scientific certainty should not be used as a reason for postponing action to protect the environment. “principle of environmental justice”« principe de justice environnementale » “principle of environmental justice” means the principle that there should be a just distribution of environmental benefits and burdens among Canadians, without discrimination on the basis of any ground prohibited by the Canadian Charter of Rights and Freedoms. “principle of intergenerational equity”« principe d’équité intergénérationnelle » “principle of intergenerational equity” means the principle that current generations of Canadians hold the environment in trust for future generations and have an obligation to use its resources in a way that leaves that environment in the same, or better, condition for future generations. “public trust”« fiducie publique » “public trust” means the federal government’s responsibility to preserve and protect the collective interest of the people of Canada in the quality of the environment for the benefit of present and future generations. “resident of Canada”« résident canadien » “resident of Canada” means a Canadian citizen or a permanent resident within the meaning of subsection 2(1) of the Immigration and Refugee Protection Act. “significant environmental harm”« préjudice environnemental grave » “significant environmental harm” includes, but is not limited to, harm where the effects on the environment are long lasting, difficult to reverse or irreversible, widespread, cumulative, or serious. “statutory instrument”« texte réglementaire » “statutory instrument” has the same meaning as in subsection 2(1) of the Statutory Instruments Act. “sustainable development”« développement durable » “sustainable development” means development that meets the needs of the present without compromising the ability of future generations to meet their own needs. Interpretation 3. This Act must be interpreted consistently with existing and emerging principles of environmental law, including, but not limited to (a) the precautionary principle; (b) the polluter pays principle; (c) the principle of sustainable development; (d) the principle of intergenerational equity; and (e) the principle of environmental justice. Aboriginal rights 4. For greater certainty, nothing in this Act is to be construed so as to abrogate or derogate from the protection provided for existing aboriginal or treaty rights of the aboriginal peoples of Canada by the recognition and affirmation of those rights in section 35 of the Constitution Act, 1982. Remedies not repealed 5. Nothing in this Act is to be interpreted so as to repeal, remove or reduce any remedy available to any person under any law in force in Canada. PURPOSE Purpose 6. The purpose of this Act is to (a) safeguard the right of present and future generations of Canadians to a healthy and ecologically balanced environment; (b) confirm the Government of Canada’s public trust duty to protect the environment under its jurisdiction; (c) ensure all Canadians have access to (i) adequate environmental information, (ii) justice in an environmental context, and (iii) effective mechanisms for participating in environmental decision-making; (d) provide adequate legal protection against reprisals for employees who take action for the purpose of protecting the environment; and (e) enhance public confidence in the implementation of environmental law. HER MAJESTY Binding on Her Majesty 7. This Act is binding on Her Majesty in right of Canada. APPLICATION Scope of application 8. The provisions of this Act apply to all decisions emanating from a federal source or related to federal land or a federal work or undertaking. PART 1 ENVIRONMENTAL RIGHTS AND OBLIGATIONS Right to Healthy Environment Right 9. (1) Every resident of Canada has a right to a healthy and ecologically balanced environment. Government's obligation (2) The Government of Canada has an obligation, within its jurisdiction, to protect the right of every resident of Canada to a healthy and ecologically balanced environment. Duty to protect the environment (3) The Government of Canada is the trustee of Canada’s environment within its jurisdiction and has the obligation to preserve it in accordance with the public trust for the benefit of present and future generations. Access to Information Right to access environmental information 10. (1) In order to contribute to the protection of the environmental rights of residents of Canada, the Government of Canada must ensure effective access to environmental information by making such information available to the public in a reasonable, timely and affordable fashion. For greater certainty (2) For greater certainty, the environmental information referred to in subsection (1) must be made available to the public in addition to any information disclosed under the Access to Information Act. Public Participation Right to participate in government decision-making in environmental matters 11. Every resident of Canada has an interest in environmental protection and the Government of Canada may not deny, oppose or otherwise contest any resident standing to participate in environmental decision-making or to appear before the courts in environmental matters solely because they lack a private or special legal interest in the matter. Government's obligation 12. In order to contribute to the protection of the environmental rights of residents of Canada, the Government of Canada must ensure opportunities for effective, informed and timely public participation in decision-making related to policies or Acts of Parliament or to regulations made under an Act of Parliament or other statutory instruments. Review of Federal Instruments Right to request review of Acts, regulations, statutory instruments and policies 13. (1) Any resident of Canada that believes that an existing policy or an Act of Parliament or a regulation made under an Act of Parliament or other statutory instrument should be amended, repealed, or revoked, or that a new policy or Act or a new regulation or other statutory instrument should be made or passed, in order to protect the environment, may apply to the Commissioner for a review by the Minister responsible for that policy or that Act or that regulation or other statutory instrument. Record (2) Within 20 days of receiving an application made under subsection (1), the Commissioner must make a record of that application and send a copy to the appropriate Minister. Acknowledgment (3) The Minister must acknowledge receipt of a request for review within 20 days. Decision within 60 days (4) The Minister must decide whether to conduct a review within 60 days of acknowledgement of the request and communicate without delay his or her decision to the party requesting the review. Report (5) The Minister must report to the Commissioner on the progress of the review every 90 days. Communication of results (6) Upon conclusion of the review and with the approval of the Commissioner, the Minister must communicate the results of the review in writing to the party making the request. Investigation of Offences Right to request investigation 14. (1) A resident of Canada that believes that an Act of Parliament or a regulation made under an Act of Parliament or other statutory instrument related to the environment has been contravened may apply to the Commissioner for an investigation of the alleged offence by the Minister responsible for that Act or that regulation or other statutory instrument. Application (2) The application must include a solemn affirmation or declaration stating (a) the name and address of the applicant; (b) that the applicant is at least 18 years old and a resident of Canada; (c) the specific Act or regulation or other statutory instrument alleged to have been contravened; (d) the nature of the alleged offence and the name of each person alleged to have committed the offence or acted in a manner contrary to the specified Act or to the specified regulation or other statutory instrument; and (e) in concise form, the evidence supporting the applicant’s allegations. Acknowledgement 15. (1) The Minister referred to in subsection 14(1) must acknowledge receipt of the application within 20 days after receiving it and, subject to subsections (2) and (3), investigate all matters that the Minister considers necessary to determine the facts relating to the alleged offence. Frivolous or vexatious application (2) No investigation is required if the Minister determines that the application is frivolous or vexatious. Notice (3) If the Minister decides not to conduct an investigation, the Minister must, within 60 days after the application for investigation is received, give notice of the decision, with reasons, to the applicant. Exception (4) The Minister need not give the notice required by subsection (3) if a separate investigation in relation to the alleged offence is under way. Report (5) The Minister must report to the applicant and to the Commissioner on the progress of the investigation every 90 days until resolution of the investigation. Communication of results (6) The Minister must communicate the final results of the investigation in writing to the applicant and to the Commissioner. PART 2 REMEDIES AND LEGAL ACTIONS Judicial Review Right to review a government decision 16. (1) Any resident of Canada, regardless of whether they are directly affected by the matter in respect of which relief is sought, has standing before the Federal Court to bring an application for the review of a government decision that would otherwise be open to judicial review pursuant to section 18.1 of the Federal Courts Act, provided that (a) the matter arises in the context of environmental protection; (b) the applicant raises a serious issue; (c) the applicant has a genuine interest in the matter; and (d) there is no other reasonable or effective way for the matter to get before the court. Application (2) An application for judicial review brought under this section must be brought in accordance with the provisions of the Federal Courts Act and Federal Courts Rules. Legal Actions Environmental protection action against the Government 17. (1) Every resident of Canada may seek recourse in the Federal Court to protect the environment by bringing an environmental protection action against the Government of Canada for (a) failing to fulfill its duties as trustee of the environment; (b) failing to enforce an environmental law; or (c) violating the right to a healthy and ecologically balanced environment. Action or inaction (2) Actions under subsection (1) may be brought in relation to any action or inaction by the Government of Canada that has in whole or in part resulted, or is likely to result, in significant environmental harm. Defence (3) It is not a defence to an environmental protection action under subsection (1) that the Government of Canada has or has exercised the power to authorize an activity that may result in significant environmental harm. Environmental protection action against an individual 18. (1) Every resident of Canada may seek recourse in the superior courts of the relevant province to protect the environment by bringing a civil action against a person who has contravened, or is likely to contravene, an Act of Parliament or a regulation made under an Act of Parliament or other statutory instrument, if the contravention has resulted or is likely to result, in significant environmental harm. Burden of proof (2) In a civil action under subsection (1), once the plaintiff has demonstrated a prima facie case of significant environmental harm, the onus is on the defendant to prove that the actions or inactions will not result in significant environmental harm. Defence (3) It is not a defence to a civil action under subsection (1) that the activity was authorized by an Act or a regulation or other statutory instrument unless the defendant proves that (a) the environmental harm is or was the inevitable result of carrying out the activity permitted by the Act or the regulation or other statutory instrument; and (b) there is no reasonable or prudent alternative that would have prevented the envi­ronmental harm. Standard of proof 19. Actions under sections 17 and 18 are subject to a civil standard of proof and will be adjudicated on the basis of a balance of probabilities. Interim order 20. (1) A plaintiff bringing an action under sections 17 or 18 may make a motion to the court for an interim order to protect the subject matter of that action when, in the court’s opinion, significant environmental harm may occur before the action can be heard. Inadmissibility (2) An interim order will not be withheld on the grounds that the plaintiff is unable to provide an undertaking to pay damages. Limit (3) Any requirement to provide an undertaking to pay damages in support of the plaintiff's application must not exceed $1,000. Factors to be considered 21. (1) In making an interim order under subsection 20(1), the court may consider (a) the nature of the environmental harm that has occurred or may occur; (b) whether the harm resulted or may result from an attempt to maximize business profits; (c) the past conduct of the party; (d) the precautionary principle; and (e) the principle of intergenerational equity. Jurisdiction (2) In making an order under subsection (1), the court retains jurisdiction over the matter so as to ensure compliance with its order. Remedial provisions 22. (1) Despite remedial provisions in other Acts, if the court finds that the plaintiff is entitled to judgment in an action under subsections 17(1) or 18(1), the court may (a) grant declaratory relief; (b) grant an injunction to halt the contravention; (c) order the parties to negotiate a restoration plan in respect of the significant environmental harm resulting from the contravention and to report to the court on the negotiations within a fixed time; (d) order the defendant to establish and maintain a monitoring and reporting system in respect of any of the activities that may impair the environment; (e) order the defendant to restore or rehabil­itate any part of the environment; (f) order the defendant to take specified preventative measures; (g) order the defendant to prepare a plan for or present proof of compliance with the order; (h) order the appropriate Minister to monitor compliance with the terms of any order; and (i) make any other order that the court considers just. Terms of an order 23. (1) In making an order under this Act, the court may issue (a) a clean-up order; (b) a restoration order; and (c) an order to pay a fine that directs moneys to go to environmental protection or monitoring programs. Jurisdiction (2) In making an order relating to an action arising under subsection 17(1), the Federal Court retains jurisdiction over the matter so as to ensure compliance with its order. Order 24. (1) If the court finds that the plaintiff is entitled to judgment in an action under subsection 18(1), the court may (a) suspend or cancel a permit or authorization issued to the defendant or the defendant’s right to obtain or hold a permit or authorization; (b) order the defendant to provide financial collateral for the performance of a specified action; (c) order the defendant to pay an amount to be used for the restoration or rehabilitation of the part of the environment harmed by the defendant; and (d) order the defendant to pay an amount to be used for the enhancement or protection of the environment generally. Costs 25. (1) A plaintiff bringing an action under subsections 17(1) or 18(1) may only be ordered by the court to pay costs if the action is found to be frivolous, vexatious or harassing. Entitlement (2) A plaintiff bringing an action under subsections 17(1) or 18(1) may be entitled to (a) counsel fees regardless of whether or not they were represented by counsel; and (b) an advance cost award upon application to the court if, in the opinion of the court, it is in the public interest. Factors to be considered (3) In exercising its discretion with respect to costs related to an action under subsections 17(1) or 18(1), the court may consider any special circumstance, including whether the action is a test case or raises a novel point of law. PART 3 EMPLOYEE REPRISAL PROTECTION Application Federal source or federal work or undertaking 26. Section 27 applies in respect of employees who are employed on or in connection with the operation of any federal source or federal work or undertaking and in respect of the employers of all such employees in their relations with those employees. Complaint Filing a complaint 27. (1) Any person may file a written complaint with the Canada Industrial Relations Board alleging that an employer or person acting on behalf of an employer or in a position of authority in respect of an employee of the employer has taken reprisals against an employee on a prohibited ground. Reprisals (2) For the purposes of this section, an employer is deemed to have taken reprisals against an employee if the employer has dismissed, disciplined, penalized, coerced, intimidated or harassed, or attempted to coerce, intimidate or harass, the employee. Prohibited grounds (3) For the purposes of this section, an employer is deemed to have taken reprisals on a prohibited ground if the employee in good faith did or has attempted to do any of the following for the purpose of protecting the environment (a) participate in environmental decision-making as provided for in any policy or in this or any other Act of Parliament or in any regulation made under an Act of Parliament or other statutory instrument; (b) apply for a review pursuant to section 13; (c) apply for an investigation pursuant to section 14; (d) seek the enforcement of any Act of Parliament or any regulation made under an Act of Parliament or other statutory instrument that seeks to protect the environment; (e) provide information to an appropriate authority for the purposes of an investigation, review or hearing under this Act or regulations made under this Act; (f) give evidence in a proceeding under this Act or regulations made under this Act; or (g) refuse or state an intention of refusing to do anything that is an offence under this Act, if acting in good faith and on the basis of reasonable belief. Fine (4) An employer who takes reprisals against an employee on a prohibited ground is guilty of an offence and is liable on summary conviction to a fine of not more than $25,000. Order (5) If an employer is convicted of an offence under subsection (4), the Board may, in addition to any other penalty imposed, order the employer to take or refrain from taking any action in relation to the employee, including the reinstatement of the employee to their former position or equivalent position or the payment to the employee of wages and benefits lost because of the reprisals. PART 4 GENERAL Examination of Bills and Regulations Examination by the Commissioner 28. The Commissioner must, in accordance with any regulations that may be prescribed by the Governor in Council, examine every regulation transmitted to the Clerk of the Privy Council for registration pursuant to the Statutory Instruments Act and every Bill introduced in or presented to the House of Commons by a minister of the Crown in order to ascertain whether any of their provisions are inconsistent with the purposes and provisions of the Canadian Environmental Bill of Rights, and the Auditor General must report any such inconsistency to the House of Commons at the first convenient opportunity. Regulations Regulations 29. The Governor in Council may make regulations for carrying out the purposes and provisions of this Act. PART 5 CONSEQUENTIAL AMENDMENT 1960, c. 44 Canadian Bill of Rights 30. Paragraph 1(a) of the Canadian Bill of Rights is replaced by the following: (a) the right of the individual to life, liberty, security of the person, including the right to a healthy and ecologically balanced environment, and enjoyment of property, and the right not to be deprived thereof except by due process of law; Published under authority of the Speaker of the House of Commons