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Abuse of Process - Other Doctrine (2). Becker v. Walgate [versus collateral attack]
In Becker v. Walgate (Ont CA, 2025) the Ontario Court of Appeal dismissed an appeal, this brought against an order that - in a context of prior related litigation - dismissed a motion to consolidate a second application "finding that the second application was a collateral attack and “clearly an attempt ... to circumvent the order of the Court of Appeal and expand the scope of the new hearing.”".
Here the court considers the contrast between 'collateral attack' and 'abuse of process' doctrine:[29] The rule against collateral attacks prevents a party from challenging the validity of a binding order in the wrong forum: Wilson v. The Queen, 1983 CanLII 35 (SCC), [1983] 2 S.C.R. 594, at p. 599; Garland v. Consumers’ Gas Co., 2004 SCC 25, [2004] 1 S.C.R. 629, at para. 72; and Canada (Attorney General) v. TeleZone Inc., 2010 SCC 62, [2010] 3 S.C.R. 585, at para. 60. The rule is meant to protect the integrity of the justice system by stopping attempts to circumvent the consequences of an order: Garland, at para. 72.
[30] The doctrine of collateral attack is not applicable in this case. The Beckers are not trying to attack or circumvent this court’s 2020 order. There is no indication that they seek to avoid participating in a trial of the issues identified by this court. Rather, they are trying to add an issue for trial by supplementing the order.
[31] In Toronto (City) v. C.U.P.E., Local 79, 2003 SCC 63, [2003] 3 S.C.R. 77, at para. 22, the Supreme Court of Canada explained that the doctrine of collateral attack is a particular application of the broader doctrine of abuse of process. As I explain below, I have concluded that the doctrine of abuse of process is applicable here rather than the doctrine of collateral attack.
[32] I first note that, in their reply factum, the Beckers suggest that abuse of process is a new issue that is not properly before the court. I disagree. As already addressed, the doctrine of collateral attack is part of the broader doctrine of abuse of process. In any event, in their original factum, the Beckers addressed the doctrine of abuse of process themselves, relying on its flexibility to argue that this is an appropriate case where the court should use its discretion to allow them to proceed with the second application and advance the bend theory.
[33] The doctrine of abuse of process applies in a variety of legal contexts: C.U.P.E., at para. 36; Behn v. Moulton Contracting Ltd., 2013 SCC 26, [2013] 2 S.C.R. 227, at para. 39. Unlike the doctrines of res judicata or issue estoppel, abuse of process is characterized by its flexibility and is not encumbered by specific requirements: C.U.P.E., at para. 42; Behn, at para. 40; and Law Society of Saskatchewan v. Abrametz, 2022 SCC 29, [2022] 2 S.C.R. 220, at para. 35. Ultimately, it serves to prevent the pursuit of litigation that would “violate such principles as judicial economy, consistency, finality and the integrity of the administration of justice”: C.U.P.E., at para. 37.
[34] Amongst other matters, the doctrine of abuse of process serves to prevent the relitigation of issues that have already been decided: C.U.P.E., at para. 37. It can also apply to issues that could have been determined in prior proceedings: Aba-Alkhail v. University of Ottawa, 2013 ONCA 633, 363 D.L.R. (4th) 470, at para. 12, leave to appeal refused, [2013] S.C.C.A. No. 491; Winter v. Sherman Estate, 2018 ONCA 703, 42 E.T.R. (4th) 181, at para. 7, leave to appeal refused, [2019] S.C.C.A. No. 438; The Catalyst Capital Group Inc. v. VimpelCom Ltd., 2019 ONCA 354, 145 O.R. (3d) 759, at para. 67, leave to appeal refused, [2019] S.C.C.A. No. 284; and Quinn v. British Columbia, 2018 BCCA 320, 425 D.L.R. (4th) 642, at para. 84, leave to appeal refused, [2018] S.C.C.A. No. 463.
[35] As the Supreme Court explained in C.U.P.E., at para. 43, “[T]he primary focus of the doctrine of abuse of process is the integrity of the adjudicative functions of courts … [T]he focus is less on the interest of parties and more on the integrity of judicial decision making as a branch of the administration of justice.” The doctrine of abuse of process “engages the inherent power of the court to prevent misuse of its proceedings in a way that would be manifestly unfair to a party or would in some way bring the administration of justice into disrepute”: Saskatchewan (Environment) v. Métis Nation – Saskatchewan, 2025 SCC 4, 500 D.L.R. (4th) 279, at para. 33; see also C.U.P.E., at para. 37; Behn, at para. 39; and Abrametz, at para. 33.
[36] Ultimately the court’s decision to dismiss a proceeding as an abuse of process is discretionary: C.U.P.E., at para. 53; Métis Nation, at para. 32. There are circumstances in which the court should not exercise its discretion to dismiss a proceeding as an abuse of process. These circumstances include where the stakes were too low in the original proceeding “to generate a full and robust response”, where new evidence is discovered, or where there was a tainted or unfair process in the original proceeding: C.U.P.E., at para. 53.
[37] In this case, the Beckers’ second application is an abuse of process because it raises an issue that could and should have been raised on the original application.
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[39] .... If this court’s 2020 order had allowed the appeal and identified the end of the lot line beyond the NCHWL, rather than sending the matter to trial, there is no doubt that it would be an abuse of process for the Beckers to now start a new proceeding to advance the bend theory. This would have been a clear example of litigation by instalment: Winter v. Sherman, 2017 ONSC 5492, at para. 50, aff’d 2018 ONCA 703, 42 E.T.R. (4th) 181, leave to appeal refused, [2019] S.C.C.A. No. 438; Becker v. Toronto (City), 2020 ONCA 607, 452 D.L.R. (4th) 679, at paras. 39-40; and Las Vegas Strip Ltd. v. Toronto (City) (1996), 1996 CanLII 8037 (ON SC), 30 O.R. (3d) 286 (Gen. Div.), at pp. 297-298, aff’d (1997), 1997 CanLII 3841 (ON CA), 32 O.R. (3d) 651 (C.A.). . Flores v. Glegg
In Flores v. Glegg (Ont CA, 2022) the Court of Appeal pronounced on the breadth of the abuse of process doctrine:[24] One of the objectives of abuse of process is to protect the integrity of the court’s process by preventing a party from relitigating matters that have already been finally determined. As the Supreme Court of Canada held in Toronto (City) v. C.U.P.E., Local 79, 2003 SCC 63, [2003] 3 SCR 77, at paras. 35-55, the doctrine is related to the common law doctrines of res judicata, issue estoppel and collateral attack, but is more flexible because it is available even where, as in this case, one or more parties to the action were not parties to the underlying action. The doctrine of abuse of process also applies to prevent re-litigation of previously decided facts, namely, whether O.G. was brainwashed by her mother: Winter v Sherman Estate, 2018 ONCA 703, at para. 8. . Kirsh v. Bristol-Myers Squibb
In Kirsh v. Bristol-Myers Squibb (Div Ct, 2021) the Divisional Court considered the doctrine of abuse of process:[39] The doctrine of abuse of process is meant to be more flexible than the doctrines of res judicata or issue estoppel. The court can stay an action as an abuse of process to prevent a party from relitigating an issue already decided or from bringing duplicative proceedings.
[40] As held by the Supreme Court of Canada in Behn v. Moulton Contracting Ltd., 2013 SCC 26, at para. 40, the “doctrine of abuse of process is characterized by its flexibility”. It gives courts the inherent power to prevent the misuse of the court’s procedures “in a way that would be manifestly unfair to a party to the litigation before it or would in some other way bring the administration of justice into disrepute”. At para. 41 of Moulton Contracting, the Court stated that “the administration of justice and fairness are at the heart of the doctrine of abuse of process” and, at para. 42 that the “doctrine of abuse of process is flexible, and it exists to ensure that the administration of justice is not brought into disrepute”. The case also considered abuse of process in the context of overlapping class actions [paras 41-57].
. Floria v. Toronto Police Service
In Floria v. Toronto Police Service (Div Ct, 2021) the Divisional Court considered the role of excess delay in an administrative context as a form of abuse of process:[48] The Supreme Court held in Blencoe v. British Columbia (Human Rights Commission), 2000 SCC 44 that an inordinate delay in an administrative proceeding may amount to an abuse of process, such that the proceeding should be stayed (at para. 121). However, the Court emphasized that a lengthy or inordinate delay alone is not sufficient. Rather, the delay must result in significant prejudice to the party seeking a remedy. He or she must show significant prejudice to the fairness of the hearing, impairing the ability to defend (at para. 102). Alternatively, the party must show that the delay has caused significant psychological or reputational harm. At para. 115, the majority stated:The doctrine of abuse of process is not limited to acts giving rise to an unfair hearing; there may be cases of abuse of process for other than evidentiary reasons brought about by delay. It must however be emphasized that few lengthy delays will meet this threshold. I caution that in cases where there is no prejudice to hearing fairness, the delay must be clearly unacceptable and have directly caused a significant prejudice to amount to an abuse of process. It must be a delay that would, in the circumstances of the case, bring the human rights system into disrepute. [49] The Court also emphasized that the determination of inordinate delay is contextual, stating at para. 122:The determination of whether a delay has become inordinate depends on the nature of the case and its complexity, the facts and issues, the purpose and nature of the proceedings, whether the respondent contributed to the delay or waived the delay, and other circumstances of the case. As previously mentioned, the determination of whether a delay is inordinate is not based on the length of the delay alone, but on contextual factors, including the nature of the various rights at stake in the proceedings, in the attempt to determine whether the community’s sense of fairness would be offended by the delay. [50] I agree with the Commission’s conclusion upholding the Hearing Officer’s ruling on abuse of process. The Hearing Officer carefully examined the length of the delay and the reasons for it, as the Commission observed. However, I note that the Commission seems to focus only on the analysis of the length of the delay by the Hearing Officer (at paras. 31-33).
[51] In administrative law, the length of the delay is not the only consideration in determining whether there has been an abuse of process. The tribunal must also consider the prejudice from the delay to determine whether the continuation of the proceeding is an abuse of process. While the Commission recognized the need for evidence of real and significant prejudice arising from the delay when it set out the test in Blencoe (Reasons, para. 27), it fails to examine this aspect of the test when it considers the Hearing Officer’s reasons, focusing on her analysis of the delay. . Apotex Inc. v. Schering Corporation
In Apotex Inc. v. Schering Corporation (Ont CA, 2018) the Court of Appeal applies it's discretion not to apply the equitable doctrine of issue estoppel if it would do an injustice in the case, and in doing so identifies the doctrines of issue estoppel and collateral attack as sub-categories of the larger doctrine of abuse of process:IV: Analysis
[19] I would note, at the outset, that the scope of the “special circumstances” exception to issue estoppel constitutes a question of law. The standard of review is thus one of correctness: Housen v. Nikolaisen, 2002 SCC 33 (CanLII), [2002] 2 S.C.R. 235, at para. 8.
[20] The requirements of, and purpose behind, the doctrine of res judicata were thoroughly canvassed in Danyluk v. Ainsworth Technologies Inc., 2001 SCC 44 (CanLII), [2001] 2 S.C.R. 460. In that decision, Binnie J. reviewed the historical development of the doctrine and its component parts: cause of action estoppel and issue estoppel. He also reviewed the development of the doctrine of collateral attack.
[21] As set out in Danyluk at para. 25, the preconditions to the operation of issue estoppel are: (i) that the same question has been decided; (ii) that the judicial decision which is said to create the estoppel was final; and, (iii) that the parties to the judicial decision or their privies were the same persons as the parties to the proceedings in which the estoppel is raised or their privies. It is clear that those three preconditions are met in this case.
[22] However, Binnie J. went on in Danyluk to point out that the court retained a discretion not to apply the doctrine where to do so would work an injustice. More specifically, Binnie J. adopted the observation in British Columbia (Minister of Forests) v. Bugbusters Pest Management Inc. (1998), 1998 CanLII 6467 (BC CA), 159 D.L.R. (4th) 50 (B.C.C.A.) where Finch J.A. said, at para. 32:It must always be remembered that although the three requirements for issue estoppel must be satisfied before it can apply, the fact that they may be satisfied does not automatically give rise to its application. Issue estoppel is an equitable doctrine, and as can be seen from the cases, is closely related to abuse of process. The doctrine of issue estoppel is designed as an implement of justice, and a protection against injustice. It inevitably calls upon the exercise of a judicial discretion to achieve fairness according to the circumstances of each case. [23] Binnie J. added, at para. 67:The objective is to ensure that the operation of issue estoppel promotes the orderly administration of justice but not at the cost of real injustice in the particular case. [24] Finally, Binnie J. concluded with a statement of what he said was the most important factor in deciding whether issue estoppel ought to be applied in any given case. He said, at para. 80:As a final and most important factor, the Court should stand back and, taking into account the entirety of the circumstances, consider whether application of issue estoppel in the particular case would work an injustice. [25] The exercise of the discretion to apply issue estoppel was also the subject of the decision of this court in Minott v. O'Shanter Development Co. (1999), 1999 CanLII 3686 (ON CA), 42 O.R. (3d) 321 (C.A.). Of particular importance, for the purposes of this case, is the observation of Laskin J.A. at para. 51 where he said:If the decision of a court on a point of law in an earlier proceeding is shown to be wrong by a later judicial decision, issue estoppel will not prevent relitigating that issue in subsequent proceedings. It would be unfair to do otherwise.
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[38] For the reasons set out above, the appellants’ proposed amendments are also not barred by the doctrine of collateral attack. In Toronto (City) v. C.U.P.E., Local 79, 2003 SCC 63 (CanLII), [2003] 3 S.C.R. 77, the Supreme Court of Canada described issue estoppel and collateral attack as “particular applications of a broader doctrine of abuse of process” [italics added] (at para. 22). Though not entirely interchangeable, the Supreme Court went on to hold the following, at para. 53:The discretionary factors that apply to prevent the doctrine of issue estoppel from operating in an unjust or unfair way are equally available to prevent the doctrine of abuse of process from achieving a similar undesirable result. As the application of collateral attack in this case would work the same injustice as issue estoppel, it should not be applied to block the proposed pleadings.
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