Sierra Club of Canada v. Canada (Attorney General)

Sierra Club of Canada v. Canada (Attorney General)
Court (s) Database
Federal Court Decisions
Date
2003-03-04
Neutral citation
2003 FCT 271
File numbers
T-765-02
Notes
Digest
Decision Content
Date: 20030304
Docket: T-765-02
Neutral Citation: 2003 FCT 271
Ottawa, (Ontario), March 4, 2003
Present: The Honourable Mr. Justice Blais
BETWEEN:
SIERRA CLUB OF CANADA
Applicant
and
THE ATTORNEY GENERAL OF CANADA, for and on behalf
of the Minister of Fisheries and Oceans, BOUNTY BAY
SHELLFISH INCORPORATED, a body corporate and 5M AQUA
FARMS LIMITED, a body corporate
Respondents
REASONS FOR ORDER AND ORDER
[1] This is an application for judicial review of a decision by the Minister of Fisheries and Oceans [Minister]approving a request by Bounty Bay Shellfish Incorporated [Bounty Bay] and 5M Aqua Farms Limited [5M] to operate mussel aquaculture facilities in St. Ann's Harbour, Cape Breton, Nova Scotia. The Minister's approval was granted on April 3rd, 2002, pursuant to subsection 5(1)(a) of the Navigable Waters Protection Act, 1985 [NWPA].
FACTS
[2] Bounty Bay is an aquaculture company that grows blue mussels for sale in Canada and worldwide. Since 1999, it has operated two mussel farming sites, also known as aquaculture leases, in St. Ann's Harbour. [3] 5M, a company formed by four commercial fisherman from the St. Ann's area, is Bounty Bay's co-developer in the aquaculture project at issue in this proceeding. [4] The Applicant, Sierra Club of Canada, is a not-for-profit entity. It has a general mandate to protect, preserve and restore the natural environment of Canada. Among its specific mandate, the Applicant is to ensure that environmental assessments are fair and fully publicly accessible, and that the governments subject to environmental legislation fulfill their obligations of proper and thorough environmental assessments. [5] In January 2000, Bounty Bay (later joined by 5M) applied to the Nova Scotia Department of Fisheries and Aquaculture for licenses and leases to operate mussel aquaculture facilities in St. Ann's Harbour. In order to operate the aquaculture project, Bounty Bay and 5M required provincial and federal regulatory approval.
[6] The Province of Nova Scotia referred the application to the Department of Fisheries and Oceans [DFO] to address any DFO related issues. [7] At the provincial level, under the Fisheries and Coastal Resources Act, 1996, the lease applications were subject to a public consultation process that included an advertising campaign and public hearings. On April 18, 2000, Bounty Bay held an information session open to the public at Gaelic College in St. Ann's to describe the project proposal. On April 19 and 26, 2000, the Province of Nova Scotia held public hearings in Englishtown to discuss the project. Federal representatives were also in attendance at the latter hearing to answer questions and receive comments and concerns. [8] On August 31, 2000, representatives of DFO and the Stewards of St. Ann's Harbour [Stewards] met to discuss the former's involvement in the project and to clarify the environmental assessment process which it would conduct.
[9] Brian Thompson, then Manager for the Habitat Management Division [HMD] of DFO, received four memoranda, one for each proposed site. The memoranda advised the HMD that work proposed by Bounty Bay would require an approval under subsection 5(1)(a) of the NWPA, and thus require that an environmental assessment be conducted in accordance with subsection 5(1)(d) of the Canadian Environmental Assessment Act, 1992 [CEAA]. [10] The DFO's HMD acted on behalf of the Minister and as the responsible authority to carry out the environmental assessment under the CEAA. Melinda Donovan, Regional Superintendent of the Navigable Waters Protection Program, was delegated the signing authority on behalf of the Minister. [11] In October 2000, as part of the NWPA's requirements, notices soliciting written objections to the project proposal were published in the Canada Gazette, the Cape Breton Post and the Victoria Standard. [12] Bounty Bay and 5M were responsible for preparing an Environmental Impact Statement [EIS]. They hired James Smith of the firm AMEC Earth and Environmental Limited [AMEC] to prepare the EIS. [13] On January 26, 2001, Craig P. Hominick, Environmental Assessment Technician for the HMD, informed Shirley MacDonald, member of the Stewards, that it was his intention that copies of the EIS would be distributed to concerned groups at their request for review. He wrote:
It is my intention that, at the request of concerned groups, copies (five copies) of the Environmental Impact Statement will be distributed to "concerned groups" for their review. ... Typically, groups will be advised that comments should be provided to the Habitat Management Division within five weeks from the date on the covering letter.
[14] Around early April 2001, Bounty Bay and 5M had learned that the EIS would be accessed by the public as part of the environmental assessment process under the CEAA. As a result, the commercially sensitive nature of Part 2 of the EIS, as alleged by Bounty Bay and 5M, raised the following concerns: (a) In the hands of a competitor, the commercially sensitive information would put Bounty Bay and 5M at a competitive disadvantage;
(b) By reason of (a), Bounty Bay and 5M were concerned that indiscriminate distribution of the EIS, such as posting and transmission on internet websites, could cause the companies significant commercial harm;
(c) Since the information formed a substantial and material part of the EIS, the removal of the information, in order to permit widespread distribution, would compromise the integrity of the EIS while underlying the ability to formulate a full and fair response to the EIS;
(d) Bounty Bay and 5M were concerned that the removal of information from the EIS would not be well received by the local community and public at large.
[15] On April 5, 2001, representatives of Bounty Bay and 5M met with members of DFO to discuss the process by which the EIS would be made publicly available, in light of the concerns set out above. As a result of that meeting, Bounty Bay and 5M understood that the CEAA did not stipulate any specific process for releasing the EIS but that "convenient public access" would be required.
[16] Taking into account the foregoing, Bounty Bay and 5M considered two possible options for providing public access to the EIS : (a) Create a public, incomplete version of the EIS with confidential information redacted for widespread distribution; or
(b) Deposit a complete, unedited copy of the EIS in public locations where any member of the public could view and consider its entire content, but with control over copying and distribution.
[17] Bounty Bay and 5M believed that the second option best addressed the interests of all parties in the public consultation process. Accordingly, five copies of the EIS were to be available for viewing in public areas, with the stipulation that none of the copies were to be photocopied or removed from any of the locations. [18] On April 11, 2001, the EIS entitled "Blue Mussel Marine Aquaculture Environmental Assessment" was received by the DFO. [19] On that same date, a memorandum was sent to Paul Keizer, Manager of the Marine Environmental Science Division of DFO, along with the EIS prepared by AMEC, requesting advice on the validity of the scientific data and any deficiencies with the EIS. Following that request, expert advice was received from DFO scientists working under Mr. Keizer's supervision. [20] On April 12, 2001, DFO was informed by Bounty Bay that it had made copies of the EIS available at five public locations within the community. Those locations were: - Baddeck Public Library, Baddeck;
- Victoria North Regional Branch Library;
- Office of Mr. MacAskill, MLA, Englishtown;
- Office of the Strait-Highlands Regional Development Agency, Baddeck; and
- Municipality of Victoria County, Court House, Baddeck.
[21] The public at large was invited to review the unedited EIS at these locations, following a "public service announcement" widely circulated to radio, television, and newspaper newsroom in the area. On April 24, 2001, a "fact sheet" inviting public comment on the EIS was also mailed to all residents serviced by the Englishtown and Baddeck post offices. [22] The public was given the opportunity to express concerns and identify deficiencies related to the EIS. The deadline set for responses was May 16, 2001; however, it was extended to June 1, 2001, considered an adequate review period by the DFO. [23] On April 24, 2001, and in response to specific requests, Bounty Bay provided a copy of the EIS to the Stewards. [24] In April 2001, Elizabeth May, Executive Director of the Applicant, attempted to obtain a copy of the EIS in order to have it reviewed by marine experts and to submit comments to theDFO. The Applicant was informed that the EIS was considered copyrighted and protected property of Bounty Bay and 5M and was available to be viewed at one of the five locations in Cape Breton, but not to be copied or removed from these locations. [25] On May 2nd, 2001, Ms. May wrote a letter to the Minister requesting his assistance in obtaining a copy of the EIS. She wrote: ...It is a subject of concern to Sierra Club of Canada and we would like the opportunity to review the proponent's (Bounty Bay of Prince Edward Island) impact assessment. However, your department has told me that I cannot have access to the document because it is copyrighted. They further told me it was "publicly available" at 5 locations - not one of which is in Ottawa.
...I can see no rationale for this bizarre approach to public participation, which is the cornerstone of the federal Act. ...
...
[26] On May 14, 2001, the Canadian Environmental Assessment Agency was able to provide a copy of the EIS to the Applicant. [27] That same day, Ms. May wrote a second letter to the Minister, asking him to give the Applicant an extension of five weeks from the May 16, 2001 deadline, for review of the EIS in order that it be able to make comments "in a timely, thoughtful and appropriate manner". [28] On May 31st, 2001, Ms. May wrote a third letter to the Minister, denouncing the handling of the environmental assessment relative to the aquaculture project. She wrote: ... Sierra Club of Canada was only able to access the document through the assistance of the Canadian Environmental Assessment Agency. Unfortunately, we only had access to the document for two weeks, effectively precluding SCC from the normal scientific review by outside experts. The community was also only able to read the document in select locations without the ability to copy or transcribe it.
I trust that given this unacceptably restrictive process, you will ensure that no more corners are cut nor procedures in the interest of public participation circumvented. The report should be rejected for a litany of deficiencies and flawed assumptions.
...
[29] By June 1st, 2001, concerned individuals and interests groups, including the Applicant, had responded to the EIS. [30] On June 7, 2001, in response to her letters, the Minister wrote to Ms. May. He informed her that the environmental screening was still underway and welcomed any comments she had on this environmental assessment:
...
It is my understanding that the Canadian Environmental Assessment Agency
has made a copy of the proponent's environmental impact statement available
to you. We are still in the process of reviewing the information for the
screening of the mussel aquaculture project and welcome any comments you
have to offer on this environmental assessment.
[emphasis added]
[31] The Applicant did not provide further submissions to the DFO. [32] On June 12, 2001, a letter was sent to Mr. Smith of AMEC indicating that the EIS had been reviewed by the HMD, scientific experts from DFO and Environment Canada. It contained their comments concerning the EIS along with those received from the public, and requested further information. [33] On October 29, 2001, AMEC responded to the request for information and submitted the follow-up report to the HMD. The report, entitled "Responses to Information Requests/Comments: St. Ann's Harbour, N.S.", was circulated to scientific experts within DFO and Environment Canada for their review.
[34] By letter dated March 26, 2002, Mr. Hominick notified Ms. Donovan of the outcome of the environmental assessment. The conclusion of the screening report was that the project was not likely to cause significant adverse environmental effects. A copy of the screening report, required mitigation measures, and follow-up program was provided to her. [35] The March 26 letter contained the following passage: Please note that, because of changes in process, the environmental assessment conclusion does not include a consideration of the effect of the project on navigation. You will need to evaluate the likeliness and significance of any adverse effects on navigation before making a decision in accordance with Section 20 of the Canadian Environmental Assessment Act.
[emphasis added]
[36] On March 28, 2002, Mr. Hominick, on behalf of the HMD, provided Bounty Bay with a copy of the screening report. It concluded that, subject to the adoption of mitigation measures, the aquaculture project was not likely to cause significant adverse environmental effects. [37] Here are a few passages of the March 28 letter, concerning the screening report:
...
DFO has determined that, taking into account the implementation of the
mitigation measuresoutlined in the Environmental Assessment Screening
report, this aquaculture project is not likely to cause significant adverse
environmental effects. To support this conclusion however, it will be necessary
for you to conduct, a Follow-up Program [Refer to CEAA, section 38(1)] as
outlined in Attachment 2.
... Changes to the project, or failure to implement the mitigation measures
(Attachment 1) and monitoring program (Attachment 2), could result in the
harmful alteration, disruption or destruction of fish habitat. ...
...
[emphasis added]
[38] On April 3rd, 2002, Ms. Donovan, on behalf of the Minister, sent a letter to Bounty Bay with the approval to conduct the aquaculture project in St. Ann's Harbour, pursuant to subsection 5(1)(a) of the NWPA.
The Minister's Decision
[39] The approval concerned aquaculture facility leases/licenses in Victoria County, of: - #1186, Western side of St. Ann's Harbour, East of Munro Point and McLeods Point;
- #1187, Eastern side of St. Ann's Harbour, at Conway Point;
- #1188, North Western side of St. Ann's Harbour, South of Price Point; and
- #1189, Eastern side of St. Ann's Harbour, at "the Rock" and MacLeods Brook.
[40] The decision states that the implementation of the mitigation measures, "designed to reduce the environmental impact of the work, is the responsibility of the owner(s) or person(s) in possession". It also mentions that the "document authorizes the work in terms of its effects on marine navigation", and that it is "the applicant's responsibility to obtain any other forms of approval". [41] The work is approved at the said sites for a period of five years, subject to terms and conditions enumerated in Appendix "A". ISSUES
[42] 1. Did the Minister breach the applicant's right to procedural fairness at common law? Did the Minister breach the applicant's right to procedural fairness in its application of subsections 18(3) or 55(1) of the CEAA? 2. Did the Minister commit a reviewable error in reaching its decision to grant an approval of the aquaculture project?
RELEVANT LEGISLATION
[43] Paragraph 5(1)(a) of the NWPA is the statutory source for the approval of an aquaculture facility to be placed in navigable waters:
5. (1) No work shall be built or placed in, on, over, under, through or across any navigable water unless
(a) the work and the site and plans thereof have been approved by the Minister, on such terms and conditions as the Minister deems fit, prior to commencement of construction;
...
5. (1) Il est interdit de construire ou de placer un ouvrage dans des eaux navigables ou sur, sous, au-dessus ou à travers de telles eaux à moins que_:
a) préalablement au début des travaux, l'ouvrage, ainsi que son emplacement et ses plans, n'aient été approuvés par le ministre selon les modalités qu'il juge à propos;
[...]
[44] Paragraph 5(1)(d) of the CEAA refers to the environmental assessment required:
5. (1) An environmental assessment of a project is required before a federal authority exercises one of the following powers or performs one of the following duties or functions in respect of a project, namely, where a federal authority
...
(d) under a provision prescribed pursuant to paragraph 59(f), issues a permit or licence, grants an approval or takes any other action for the purpose of enabling the project to be carried out in whole or in part.
5. (1) L'évaluation environnementale d'un projet est effectuée avant l'exercice d'une des attributions suivantes_:
[...]
d) une autorité fédérale, aux termes d'une disposition prévue par règlement pris en vertu de l'alinéa 59f), délivre un permis ou une licence, donne toute autorisation ou prend toute mesure en vue de permettre la mise en oeuvre du projet en tout ou en partie.
[45] Subsection 6(1) of the NWPA refers to ministerial orders respecting unauthorized works:
6. (1) Where any work to which this Part applies is built or placed without having been approved by the Minister, is built or placed on a site not approved by the Minister, is not built or placed in accordance with plans so approved or, having been so built or placed, is not maintained in accordance with those plans and the regulations, the Minister may
(a) order the owner of the work to remove or alter the work;
(b) where the owner of the work fails forthwith to comply with an order made pursuant to paragraph (a), remove and destroy the work and sell, give away or otherwise dispose of the materials contained in the work; and
(c) order any person to refrain from proceeding with the construction of the work where, in the opinion of the Minister, the work interferes or would interfere with navigation or is being constructed contrary to this Act.
6. (1) Dans les cas où un ouvrage visé par la présente partie est construit ou placé sans avoir été approuvé par le ministre ou est construit ou placé sur un emplacement non approuvé par le ministre ou n'est pas construit ou placé conformément à des plans ainsi approuvés ou, après avoir été ainsi construit ou placé, n'est pas entretenu conformément à ces plans et aux règlements, le ministre peut_:
a) ordonner au propriétaire de l'ouvrage de l'enlever ou de le modifier;
b) lorsque le propriétaire de l'ouvrage n'obtempère pas à un ordre donné sous le régime de l'alinéa a), enlever et détruire l'ouvrage et aliéner - notamment par vente ou don - les matériaux qui le composent;
c) enjoindre à quiconque d'arrêter la construction de l'ouvrage lorsqu'il est d'avis qu'il gêne ou gênerait la navigation ou que sa construction est en contravention avec la présente loi.
[46] Section 4 of the CEAA defines its purpose:
4. The purposes of this Act are
(a) to ensure that the environmental effects of projects receive careful consideration before responsible authorities take actions in connection with them;
(b) to encourage responsible authorities to take actions that promote sustainable development and thereby achieve or maintain a healthy environment and a healthy economy;
(b.1) to ensure that responsible authorities carry out their responsibilities in a coordinated manner with a view to eliminating unnecessary duplication in the environmental assessment process;
(c) to ensure that projects that are to be carried out in Canada or on federal lands do not cause significant adverse environmental effects outside the jurisdictions in which the projects are carried out; and
(d) to ensure that there be an opportunity for public participation in the environmental assessment process.
4. La présente loi a pour objet_:
a) de permettre aux autorités responsables de prendre des mesures à l'égard de tout projet susceptible d'avoir des effets environnementaux en se fondant sur un jugement éclairé quant à ces effets;
b) d'inciter ces autorités à favoriser un développement durable propice à la salubrité de l'environnement et à la santé de l'économie;
b.1) de faire en sorte que les autorités responsables s'acquittent de leurs obligations afin d'éviter tout double emploi dans le processus d'évaluation environnementale;
c) de faire en sorte que les éventuels effets environnementaux négatifs importants des projets devant être réalisés dans les limites du Canada ou du territoire domanial ne débordent pas ces limites;
d) de veiller à ce que le public ait la possibilité de participer au processus d'évaluation environnementale.
[47] Follow-up program, mitigation, responsible authority, screening, and screening report are defined in section 2 of the CEAA to mean:
"follow-up program"
means a program for
(a) verifying the accuracy of the environmental assessment of a project, and
(b) determining the effectiveness of any measures taken to mitigate the adverse environmental effects of the project;
« _programme de suivi_ »
Programme visant à permettre_:
a) de vérifier la justesse de l'évaluation environnementale d'un projet;
b) de juger de l'efficacité des mesures d'atténuation des effets environnementaux négatifs.
"mitigation"
means, in respect of a project, the elimination, reduction or control of the adverse environmental effects of the project, and includes restitution for any damage to the environment caused by such effects through replacement, restoration, compensation or any other means;_
« mesures d'atténuation_ »
Maîtrise efficace, réduction importante ou élimination des effets environnementaux négatifs d'un projet, éventuellement assortie d'actions de rétablissement notamment par remplacement ou restauration; y est assimilée l'indemnisation des dommages causés.
"responsible authority",
in relation to a project, means a federal authority that is required pursuant to subsection 11(1) to ensure that an environmental assessment of the project is conducted;
« _autorité responsable_ »
L'autorité fédérale qui, en conformité avec le paragraphe 11(1), est tenue de veiller à ce qu'il soit procédé à l'évaluation environnementale d'un projet.
"screening"
means an environmental assessment that is conducted pursuant to section 18 and that includes a consideration of the factors set out in subsection 16(1)
« examen préalable »
Évaluation environnementale qui, à la fois_:
a) est effectuée de la façon prévue à l'article 18;
b) prend en compte les éléments énumérés au paragraphe 16(1).
"screening report"
means a report that summarizes the results of a screening;
« _rapport d'examen préalable_ »
Rapport des résultats d'un examen préalable.
[48] Section 14 of the CEAA defines the environmental process assessment:
14. The environmental assessment process includes, where applicable,
(a) a screening or comprehensive study and the preparation of a screening report or a comprehensive study report;
...
(c) the design and implementation of a follow-up program.
14. Le processus d'évaluation environnementale d'un projet comporte, selon le cas_:
a) un examen préalable ou une étude approfondie et l'établissement d'un rapport d'examen préalable ou d'un rapport d'étude approfondie;
[...]
c) l'élaboration et l'application d'un programme de suivi.
[49] Subsection 15(3) of the CEAA refers to the requirement to conduct an environmental assessment:
15(3) Where a project is in relation to a physical work, an environmental assessment shall be conducted in respect of every construction, operation, modification, decommissioning, abandonment or other undertaking in relation to that physical work that is proposed by the proponent or that is, in the opinion of
(a) the responsible authority, or
(b) where the project is referred to a mediator or a review panel, the Minister, after consulting with the responsible authority,
likely to be carried out in relation to that physical work.
15(3) Est effectuée, dans l'un ou l'autre des cas suivants, l'évaluation environnementale de toute opération - construction, exploitation, modification, désaffectation, fermeture ou autre - constituant un projet lié à un ouvrage_:
a) l'opération est proposée par le promoteur;
b) l'autorité responsable ou, dans le cadre d'une médiation ou de l'examen par une commission et après consultation de cette autorité, le ministre estime l'opération susceptible d'être réalisée en liaison avec l'ouvrage.
[50] There are four types of environmental assessments: screening, comprehensive study, mediation, and panel review. The purpose and scope of the factors to be taken into consideration in the screening report are outlined in subsections 16(1) and (3) of the CEAA:
16. (1) Every screening or comprehensive study of a project and every mediation or assessment by a review panel shall include a
consideration of the following factors:
(a) the environmental effects of the project, including the environmental effects of malfunctions or accidents that may occur in connection with the project and any cumulative environmental effects that are likely to result from the project in combination with other projects or activities that have been or will be carried out;
(b) the significance of the effects referred to in paragraph (a);
(c) comments from the public that are received in accordance with this Act and the regulations;
(d) measures that are technically and economically feasible and that would mitigate any significant adverse environmental effects of the project; and
(e) any other matter relevant to the screening, comprehensive study, mediation or assessment by a review panel, such as the need for the project and alternatives to the project, that the responsible authority or, except in the case of a screening, the Minister after consulting with the responsible authority, may require to be considered.
16. (1) L'examen préalable, l'étude approfondie, la médiation ou l'examen par une commission d'un projet portent notamment sur les éléments suivants_:
a) les effets environnementaux du projet, y compris ceux causés par les accidents ou défaillances pouvant en résulter, et les effets cumulatifs que sa réalisation, combinée à l'existence d'autres ouvrages ou à la réalisation d'autres projets ou activités, est susceptible de causer à l'environnement;
b) l'importance des effets visés à l'alinéa a);
c) les observations du public à cet égard, reçues conformément à la présente loi et aux règlements;
d) les mesures d'atténuation réalisables, sur les plans technique et économique, des effets environnementaux importants du projet;
e) tout autre élément utile à l'examen préalable, à l'étude approfondie, à la médiation ou à l'examen par une commission, notamment la nécessité du projet et ses solutions de rechange, - don't l'autorité responsable ou, sauf dans le cas d'un examen préalable, le ministre, après consultation de celle-ci, peut exiger la prise en compte.
(3) The scope of the factors to be taken into consideration pursuant to paragraphs (1)(a), (b) and (d) ... shall be determined
(a) by the responsible authority;
...
(3) L'évaluation de la portée des éléments visés aux alinéas (1)a), b) et d) [...] incombe_:
a) à l'autorité responsable;
[...]
[51] Subsection 18(3) of the CEAA relates to public participation in the screening of the project:
(3) Where the responsible authority is of the opinion that public participation in the screening of a project is appropriate in the circumstances, or where required by regulation, the responsible authority shall give the public notice and an opportunity to examine and comment on the screening report and on any record that has been filed in the public registry established in respect of the project pursuant to section 55 before taking a course of action under section 20.
[emphasis added]
3) Avant de prendre sa décision aux termes de l'article 20, l'autorité responsable, dans les cas où elle estime que la participation du public à l'examen préalable est indiquée ou dans le cas où les règlements l'exigent, avise celui-ci et lui donne la possibilité d'examiner le rapport d'examen préalable et les documents consignés au registre public établi aux termes de l'article 55 et de faire ses observations à leur égard.
[nos italiques]
[52] Once public participation is considered appropriate, convenient access to documents should be provided pursuant to subsection 55(1) of the CEAA:
55. (1) For the purpose of facilitating public access to records relating to environmental assessments, a public registry shall be established and operated in a manner to ensure convenient public access to the registry and in accordance with this Act and the regulations in respect of every project for which an environmental assessment is conducted.
[emphasis added]
55. (1) Est tenu, conformément à la présente loi et aux règlements, un registre public pour chacun des projets pour lesquels une évaluation environnementale est effectuée afin de faciliter l'accès aux documents relatifs à cette évaluation.
[nos italics]
[53] Subsections 55(2) and (3) refer, respectively, to the public registry and its content:
(2) The public registry in respect of a project shall be maintained
(a) by the responsible authority from the commencement of the environmental assessment until any follow-up program in respect of the project is completed; and
...
(3) Subject to subsection (4), a public registry shall contain all records produced, collected, or submitted with respect to the environmental assessment of the project, including
(a) any report relating to the assessment;
(b) any comments filed by the public in relation to the assessment;
(c) any records prepared by the responsible authority for the purposes of section 38;
(d) any records produced as the result of the implementation of any follow-up program;
...; and
(f) any documents requiring mitigation measures to be implemented.
(4) A public registry shall contain a record referred to in subsection (3) if the record falls within one of the following categories:
(a) records that have otherwise been made available to the public in carrying out the assessment pursuant to this Act and any additional records that have otherwise been made publicly available;...
[emphasis added]
(2) Le registre public est tenu_:
a) par l'autorité responsable dès le début de l'évaluation environnementale et jusqu'à ce que le programme de suivi soit terminé;
[...]
(3) Sous réserve du paragraphe (4), le registre public contient tous les documents produits, recueillis ou reçus relativement à l'évaluation environnementale d'un projet, notamment_:
a) tout rapport relatif à l'évaluation environnementale du projet;
b) toute observation du public à l'égard de l'évaluation;
c) tous les documents que l'autorité responsable a préparés pour l'application de l'article 38;
d) tous les documents produits par l'application d'un programme de suivi;
[...]
f) tous les documents exigeant l'application de mesures d'atténuation.
(4) Le registre public permet l'accès aux documents visés au paragraphe (3) si ceux-ci appartiennent à l'une des catégories suivantes_:
a) documents qui sont mis à la disposition du public dans le registre conformément à la présente loi ainsi que tout autre document qui a déjà été rendu public;
[...]
[nos italiques]
[54] Subsection 17(1) of the CEAA refers to delegation by the responsible authority:
17(1) A responsible authority may delegate to any person, body or jurisdiction within the meaning of subsection 12(5) any part of the screening or comprehensive study of a project or the preparation of the screening report or comprehensive study report, and may delegate any part of the design and implementation of a follow-up program, but shall not delegate the duty to take a course of action pursuant to subsection 20(1) or 37(1).
(2) For greater certainty, a responsible authority shall not take a course of action pursuant to subsection 20(1) or 37(1) unless it is satisfied that any duty or function delegated pursuant to subsection (1) has been carried out in accordance with this Act and the regulations.
[emphasis added]
17(1) L'autorité responsable d'un projet peut déléguer à un organisme, une personne ou une instance, au sens du paragraphe 12(5), l'exécution de l'examen préalable ou de l'étude approfondie, ainsi que les rapports correspondants, et la conception et la mise en oeuvre d'un programme de suivi, à l'exclusion de toute prise de décision aux termes du paragraphe 20(1) ou 37(1).
(2) Il est entendu que l'autorité responsable qui a délégué l'exécution de l'examen ou de l'étude ainsi que l'établissement des rapports en vertu du paragraphe (1) ne peut prendre une décision aux termes du paragraphe 20(1) ou 37(1) que si elle est convaincue que les attributions déléguées ont été exercées conformément à la présente loi et à ses règlements.
[nos italiques]
[55] In accordance with subsection 20(1) of the CEAA, following a screening, the responsible authority must decide whether the project is likely to cause significant adverse environmental effects before it approves a project:
20. (1) The responsible authority shall take one of the following courses of action in respect of a project after taking into consideration the screening report and any comments filed pursuant to subsection 18(3):
(a) subject to subparagraph (c)(iii), where, taking into account the implementation of any mitigation measures that the responsible authority considers appropriate, the project is not likely to cause significant adverse environmental effects, the responsible authority may exercise any power or perform any duty or function that would permit the project to be carried out and shall ensure that any mitigation measures that the responsible authority considers appropriate are implemented;
(b) where, taking into account the implementation of any mitigation measures that the responsible authority considers appropriate, the project is likely to cause significant adverse environmental effects that cannot be justified in the circumstances, the responsible authority shall not exercise any power or perform any duty or function conferred on it by or under any Act of Parliament that would permit the project to be carried out in whole or in part; or
(c) where
(i) it is uncertain whether the project, taking into account the implementation of any mitigation measures that the responsible authority considers appropriate, is likely to cause significant adverse environmental effects,
(ii) the project, taking into account the implementation of any mitigation measures that the responsible authority considers appropriate, is likely to cause significant adverse environmental effects and paragraph (b) does not apply, or
(iii) public concerns warrant a reference to a mediator or a review panel,
the responsible authority shall refer the project to the Minister for a referral to a mediator or a review panel in accordance with section 29.
[emphasis added]
20. (1) L'autorité responsable prend l'une des mesures suivantes, après avoir pris en compte le rapport d'examen préalable et les observations reçues aux termes du paragraphe 18(3)_:
a) sous réserve du sous-alinéa c)(iii), si la réalisation du projet n'est pas susceptible, compte tenu de l'application des mesures d'atténuation qu'elle estime indiquées, d'entraîner des effets environnementaux négatifs importants, exercer ses attributions afin de permettre la mise en oeuvre du projet et veiller à l'application de ces mesures d'atténuation;
b) si, compte tenu de l'application des mesures d'atténuation qu'elle estime indiquées, la réalisation du projet est susceptible d'entraîner des effets environnementaux négatifs importants qui ne peuvent être justifiés dans les circonstances, ne pas exercer les attributions qui lui sont conférées sous le régime d'une loi fédérale et qui pourraient lui permettre la mise en oeuvre du projet en tout ou en partie;
c) s'adresser au ministre pour une médiation ou un examen par une commission prévu à l'article 29_:
(i) s'il n'est pas clair, compte tenu de l'application des mesures d'atténuation qu'elle estime indiquées, que la réalisation du projet soit susceptible d'entraîner des effets environnementaux négatifs importants,
(ii) si la réalisation du projet, compte tenu de l'application de mesures d'atténuation qu'elle estime indiquées, est susceptible d'entraîner des effets environnementaux négatifs importants et si l'alinéa b) ne s'applique pas,
(iii) si les préoccupations du public le justifient.
[nos italiques]
[56] Subsection 20(2) of the CEAA refers to the responsible authority's obligation to ensure the implementation of mitigation measures:
(2) Where a responsible authority takes a course of action referred to in paragraph (1)(a), it shall, notwithstanding any other Act of Parliament, in the exercise of its powers or the performance of its duties or functions under that other Act or any regulation made thereunder or in any other manner that the responsible authority considers necessary, ensure that any mitigation measures referred to in that paragraph in respect of the project are implemented.
(2) L'autorité responsable qui prend la décision visée à l'alinéa (1)a) veille, malgré toute autre loi fédérale, lors de l'exercice des attributions qui lui sont conférées sous le régime de cette loi ou de ses règlements ou selon les autres modalités qu'elle estime indiquées, à l'application des mesures d'atténuation visées à cet alinéa.
[57] According to subsection 38(1) of the CEAA, once the responsible authority approves a project, it shall ensure that a follow-up monitoring program is established:
38. (1) Where a responsible authority takes a course of action pursuant to paragraph 20(1)(a) or 37(1)(a), it shall, in accordance with any regulations made for that purpose, design any follow-up program that it considers appropriate for the project and arrange for the implementation of that program.
[emphasis added]
38. (1) L'autorité responsable qui décide de la mise en oeuvre conformément aux alinéas 20(1)a) ou 37(1)a) élabore, conformément aux règlements pris à cette fin, tout programme de suivi qu'elle estime indiqué et veille à son application.
[nos italiques]
ANALYSIS
Standard of Review
[58] First and foremost, it is necessary to determine the standard of review applicable to ministerial decisions in environmental matters. In Inverhuron & District Ratepayers' Assn v. Canada (Minister of the Environment), (2001) 273 N.R. 62, [2001] F.C.J. No. 1008 (F.C.A), Sexton J. A. stated: [para. 36] This Court has recognized that policy concerns militate in favour of a more deferential standard of review. The environmental assessment process is already a long and arduous one, both for proponents and opponents of a project. To turn the reviewing Court into an "academy of science" -- to use a phrase coined by my colleague Strayer J. (as he then was) in Vancouver Island Peace Society v. Canada [See Note 12 below] -- would be both inefficient and contrary to the scheme of the Act. Thus, in Bow Valley Naturalists, Linden J.A. had the following to say regarding the scope of judicial review of a decision taken upon receipt of an environmental assessment:
Note 12:[1992] 3 F.C. 42 at 51.
The Court must ensure that the steps in the Act are followed, but it must defer to the responsible authorities in their substantive determinations as to scope of the project, the extent of the screening and the assessment of the cumulative effects in the light of the mitigating factors proposed. It is not for the Judges to decide what projects are to be authorized, but, as long as they follow the statutory process, it is for the responsible authorities. [Note omitted]
[para. 37] I find this approach persuasive. ...