SUBMISSION BY B'NAI
BRITH
Review of the Arbitration
Process in
I.The
Role of B'nai Brith
B'nai
Brith
B'nai
Brith and its agencies are dedicated to strengthening
Given
the fact that Jewish religious courts have been operative in family law
areas for hundreds of years, B'nai Brith Canada has been asked to comment
on the specific instance of sharia based tribunals being recognized under
the Ontario Arbitration Act, 1991, ( S.O. 1991, c. 17), and the
concerns that have been raised regarding the possible compromise of the
rights of Muslim women and other vulnerable groups.
II.Background
Following
the request to allow sharia based tribunals to function under the
B?nai
Brith
III.Position
of B'nai Brith
Statement of Principles
1)It
is B?nai Brith
2)B'nai
Brith supports the integrity of the freedom of choice of any individual,
who, for religious reasons, wishes to participate by reason of his or her
own conscience in such religious courts and thereby consult his or her
own religious traditions, so long as it is done consensually or voluntarily.
3)It
is the right of all those residing in Canada to be treated equally, no
matter what their religious background, as set out in section 15 of the
Canadian
Charter of Rights and Freedoms, 1982.
4)B'nai
Brith is firmly committed to a system of alternative dispute forums that
recognizes the right of choice for all of
IV.Addressing
Legitimate Concerns
Voluntariness
B'nai
Brith
Existing Safeguards
We
would argue that safeguards are already built into the system at the enforcement
level which ensure that the basic rights of all participants are protected.Our
recommendations which follow will serve, we submit, to enhance such protections.These
specific suggestions as to technical changes will better protect the rights
of vulnerable individuals, such as certain women, while still protecting
the integrity of the constitutional and Charter provisions designed
to protect the religious rights of all Ontario's diverse residents.
It
is the firm view of B'nai Brith
Nor
will the courts of
The
experience in the realm of the Jewish religious courts is that the Superior
Court will exercise its parens patriae supervisory jurisdiction,
as well as its constitutional jurisdiction, to override any unprincipled
position taken by an arbitration panel.The
unreported 1996 family law ruling of the Ontario Superior Court of T.
v. T. is illustrative. (A copy of the order was provided to Marion
Boyd, but names are withheld here to respect the privacy of the litigants.)In
that case, the Judge did not hesitate to exercise her parens patriae
supervisory authority to intervene and find that a Jewish court, comprised
of three Rabbis, had overly delayed a matrimonial dispute regarding child
support and access issues to the detriment of the family involved.The
Judge had made her own child support and access order on an interim basis
in an earlier order, and in the subsequent order discussed here, she transferred
the balance of the proceedings to be heard by the Ontario Superior Court.
To
the best of our knowledge and research, this is the only known case where
a Jewish
V.Recommendations
for changes
1)Certificate
of Independent Legal Advice
A
key concern raised by many groups is that vulnerable members of the Muslim
community in
It
is further recommended that the Certificate of Independent Legal Advice
contain a specific clause making full and frank disclosure of all financial
matters mandatory before any religious court, notwithstanding any prior
agreement entered into by the spouses under Part IV of the Ontario Family
Law Act, R.S.O.
1990, c. F3, in
compliance with section 56(4) thereof(see
paragraph 5 of the recommended Certificate in Appendix A).
The
legislation should also provide that prior to any religious court ruling
being enforced by the Ontario Superior Court, the litigant will be required
to complete and file an Affidavit of Solicitor as Subscribing Witness (Appendix
B), to which a copy of the solicitor?s Certificate of Independent Legal
Advice will be attached as an exhibit.It
would then be within the Court's discretion to either immediately grant
the enforcement order, or schedule a full hearing to investigate the circumstances
regarding whether or not the litigant's participation in the religious
arbitration hearing was truly voluntary.This
process will further ensure that it is the free and voluntary decision
of a litigant to enter into the arbitration process.
An
analogous process now occurs when parties with dependent children apply
for a divorce under the Divorce Act.Before
the Court will grant a divorce, the parties must satisfy the Court, through
affidavit evidence, that provisions for child support in compliance with
the Federal Child Support Guidelines under the Divorce Act
have been strictly complied with by filing tax returns, Notices of Assessment
and pay stubs to prove the litigant's gross yearly income over the past
three years.The Ontario Courts are
impressed with a supervisory function when consent to a motion for a Court
order is filed before it.Judges are
often not satisfied with the affidavit evidence provided and demand more
particulars.The orders made are not
simply "pro forma," particularly when the amount of child support requested
is less than the amount in the Guidelines that was supposed to be
normally ordered in accordance with the litigant's income - even if the
request is being made on consent of both parties.
Similarly,
a Judge may well decide to have the parties to an arbitration agreement
appear when the proposed Affidavits of Voluntariness are filed, particularly
if the affidavit offers too few particulars, or if the decision of the
religious court appears to be particularly draconian.
Our
suggested version of the certificate is very specific.It
tells the Judge that the litigant be fully
informed about the nature of the process and the alternative type of law
and procedure that will be administered, as well as the benefit of the
Some
critics might suggest that a Certificate of Independent Legal Advise is
insufficient to protect vulnerable litigants.In
reality, lawyers consider these certificates very seriously.They
are well aware that their insurance deductibles and professional standing
are in question should a vulnerable spousal litigant later attempt to make
a claim against the solicitor on the basis that she was not sufficiently
apprised of the rights she was foregoing under any particular agreement. This
is particularly so in cases of arbitration agreements that could affect
rights of property, support, child custody and access.As
a result, many solicitors reduce their advice to writing in order to protect
their liability positions, or have their clients sign ?waivers? when the
clients sign agreements that contravene their advice.
2)Inheritance
In
disputes concerning inheritance, Jewish courts convene the litigants and
attempt to resolve matters in the same manner as they do with family law
disputes - first they attempt to mediate, failing which they arbitrate.
The
arbitration agreement usually has the parties, for instance, two squabbling
joint executors or beneficiaries, agreeing to receive a ruling from the
arbitrators on any outstanding dispute based on Jewish law.The
arbitration agreement will further provide that the ruling will be deemed
to constitute binding recommendations to the Estate branch of the Superior
Court regarding a consent order setting out how the estate in dispute will
be distributed.Nonetheless, parties
to the arbitration and the Jewish Court itself must recognize that the
ultimate authority over estate matters in
Once
again, B?nai Brith recommends that before any litigants be permitted to
allow clerical arbitrators to determine inheritance disputes, they should
be required to obtain a Certificate of Independent Legal Advice.However,
in matters of arbitrations involving inheritance, the Certificate should
further provide that the litigant has been advised of a new legislatively
proscribed duty to inform the religious courts in writing of the following
before the commencement of any such arbitration (see paragraph 7 of recommended
Certificate in Appendix A):
(a)any
Last Will and Testament of the Deceased and probate thereof, together with
any known copies of any Powers of Attorney granted to Third Parties, (if
known),
(b)any
holograph Will or other document purporting to represent a testamentary
instrument,
(c)the
full names, full addresses and phone numbers (if available) of any spouse
or children of the deceased, (if any),
(d)the
full names, full addresses and phone numbers (if available) of any third
parties that may be under a mental and/or physical disability that may
have been financially dependent on the deceased,
(e)the
full names, full addresses and phone numbers of any known secured or unsecured
creditors of the deceased, after having obtained an execution search and
Bankruptcy search, (if any),
(f)a
list of the deceased?s known assets (if any), and
(g)the
list of all next of kin.
In
this manner, if the litigant decides to take the dispute to religious arbitration,
the religious court will be able to properly consider the rights and concerns
of such third parties.If not, then
the Superior Court ultimately has the supervisory authority to protect
such third parties.
3)Credentials
of Arbitrators
Concern
has also been raised in the context of the sharia law debate as to the
training of who will sit as arbitrators on such tribunals.
Rarely
has a complaint been made about the quality of the decision-making in the
Beis Din system (Jewish religious court system) successfully operating
in Ontario.Indeed, the very concept
of mediation/arbitration, as it is currently practiced in family law in
Ontario, finds its historical roots in the procedures of the Jewish Courts
themselves.What is unique about arbitration
in family law in the Jewish courts is that before the arbitration phase,
the Rabbis attempt to mediate the dispute, exempting the process under
section 35 of the Arbitration
Act in writing, which section permits an arbitrator also to act as
mediator.Only if the mediation fails
do they then become arbitrators.Before
even the mediation phase, they first attempt marriage counseling.
Rabbis
sitting as arbitrators on the Jewish religious courts have been diligently
practicing and teaching this method for decades, transmitted through
their formal learning through the ages and the Talmud.While
their actual backgrounds and formal training varies, the rabbis are highly
educated in Jewish law and its application in the Canadian context.The
experience of the Toronto Beis Din (Jewish
Rabbinical Court) in this regard, and the training and qualifications of
the rabbis sitting as arbitrators, are outlined in the letter of Rabbi ReuvenTradburks,
Secretary of the Toronto Beis Din and
special consultant to B?nai Brith Canada?s subcommittee, attached as Appendix
C to this submission.
In
this area as well, the
It is our
view that the credentials of the acting arbitrators are best assured by
a system of self-governance by each religious/cultural group and not through
any state-imposed standardized training or government charter-granting
authority.As noted above, any dangers
inherent in the arbitration process should be brought to the individual
litigant's attention by the lawyer offering the independent advice.Our
recommended Certificate of Independent Legal Advice has developed a clause
which addresses this concern (see paragragh
6 of the recommended Certificate in Appendix A).Going
beyond that to impose any standard level of training may indeed interfere
with Charter-protected religious rights.It
also would create a state-sponsored paternalistic and legislated attitude
towards all Ontarians of faith who have a right to choose,
after they have been given independent legal advice by the lawyer of their
choice.
It
is the procedure surrounding the making of that choice which should be
legislated and supervised by the Court, not the choice itself.Once
a member of a vulnerable group is privately told by a lawyer what rights
they may be foregoing, many will realize that the sharia or other
systems are not appropriate for their needs. Under
our recommendations, a lawyer will be obliged to inform litigants as to
the benefits of staying in the Ontario Courts, as opposed to opting for
proceeding by way of religious arbitration. In
each such interview, the party should be advised as to the education and
background of the decision-maker in each system that will be dealing with
their dispute. As a result, many will stay in the Ontario Court system.Yet,
many women (and men), including highly educated Ontarians, will still opt
to have their disputes arbitrated privately.
B'nai
Brith recommends that in today?s legal system, governed by the Charter
and key decisions such as Syndicat (S.C.C.), supra, the
4)Developing
Written Reasons for Decisions
It
is our recommendation that all arbitrators, whether sitting as religious
court panels or otherwise, be required to produce written decisions with
reasons in family law and inheritance cases.Such
a requirement will promote transparency of the arbitration process in
5)Legal
Aid
The
religious-based court system offers litigants the opportunity to settle
disputes at considerably less cost than the
VI.Conclusion
It
is B'nai Brith
I,
(name of solicitor), of the City of,
in the Municipality of,
MAKE OATH/AFFIRM AND SAY:
1.I
am the solicitor forand am a subscribing
witness to this Arbitration Agreement, and I was present and saw it executed
atby the said.
2.I
verily believe that the person whose signature I witnessed is the party
of the same name referred to in the instrument.
3.I
have advised the saidwith respect
to the within Arbitration Agreement and I believe that he(she) is fully
aware of the nature and effect of the Arbitration Agreement and is signing
this document voluntarily.
4.Prior
to signing the said Agreement, I thoroughly reviewed the provisions of
Ontario?s Family Law Act, Children?s Law Reform Act, Succession Law
Reform Act and Canada?s Divorce Act and any other family law
statute or principle under statutory or common law that may affectthis
party in her (his) particular case and in so doing I explained what rights
or benefits he or she may be foregoing by signing the Arbitration Agreement
and submitting to the law and procedures provided for under that Agreement.
5.Notwithstanding
the generality of the foregoing, I further explained to the person whose
signature I witnessed, if necessary for the purposes of this Arbitration,
that he or she had a statutory legal duty to provide to his or her spouse
or person with whom he or she had cohabited full and frank written financial
disclosure of his or her significant assets and significant liabilities
as of the date of marriage, the date of separation and as of the date when
the Arbitration Agreement was being signed, pursuant to section 56(4) of
Ontario?s Family Law Act, or any successor legislation, as well
as complete written disclosure of his or her gross yearly income for the
current and past three annual taxation years, pursuant to the provisions
of the Divorce Act, and Family Law Act, failing which any
ruling by the arbitrator or arbitrators could be set aside or not enforced
by the Superior Court and, further, to provide any proof in the form of
tax returns, pay stubs, corporate tax returns and valuations of business
interests or any other such documentation for such purposes, if so requested
by the other spouse or by the arbitrators.
6.I
have further thoroughly considered with the person whose signature I have
witnessed, the educational standards or lack of them, by which the arbitrators
assigned to this arbitration conformed and by which they became qualified,
or not, in order to arbitrate the dispute or disputes in question under
the said Agreement, including the laws and procedures to be employed under
it and the extent to which the said arbitrator or arbitrators have an acquaintance
with Ontario?s Arbitration Act, Family Law Act, Divorce Act, Succession
Law reform Act or any of its related statutes or any of its other laws
under the province of Ontario and Canada as they may related to this dispute.
[In
cases involving disputes concerning inheritances:
7.Since
the Arbitration Agreement pertained to resolving a dispute involving an
inheritance, I specifically advised the party to provide to the arbitrators
the following documentation and
(a)any
Last Will and Testament of the Deceased and probate thereof, together with
any known copies of any Powers of Attorney granted to Third Parties, (if
known);
(b)any
holograph Will or other document purporting to represent a testamentary
instrument;
(c)the
full names, full addresses and phone numbers (if available) of any spouse
or children of the deceased, (if any);
(d)the
full names, full addresses and phone numbers (if available) of any third
parties that may be under a mental and/or physical disability that may
have been financially dependent on the deceased;
(e)the
full names, full addresses and phone numbers of any known secured or unsecured
creditors of the deceased, after having obtained an execution search and
Bankruptcy search, (if any);
(f)a
list of the deceased?s known assets (if any); and
(g)the
list of all next of kin.
SWORN/AFFIRMED
BEFORE ME at the)
City
of in
the
thisday
of200__)
)
A
Commissioner, etc.
AFFIDAVIT
OF SOLICITOR AS SUBSCRIBING WITNESS
I,,
of the City of in the Municipality
of , MAKE OATH/AFFIRM AND SAY:
1.I
am the solicitor forand
a subscribing witness to this Arbitration Agreement, and I was present
and saw it executed at
by the said.
2.I
have been consulted in my professional capacity by a party named in the
annexed agreement as to her obligations and rights under the said agreement
and I acted solely for her and discussed with her the rights and obligations
that she has with respect to this agreement.
3.It
is my belief thathas
entered into the annexed agreement of her own
volition and without fears, threats, compulsion of influence from
or
any other person.
SWORN/AFFIRMED
BEFORE ME at the)
City
of in
the
thisday
of200__)
A
Commissioner, etc.
Appendix
C
Beis
Din, VaadHarabonim
Tel., (416) 229-2600, Fax, (416) 229-2167, e-mail, tradburk@interlog.com
Dear Ms. Boyd:
At your request, I will outline a number of the procedures
of the Beis Din, the Jewish Court in
I will address the issues of training of the arbitrators, the selection of the arbitrators, the familiarity of Ontario Family Law, familiarity with the Arbitration Act, and our position concerning the B?nai Brith proposition.
The normal Rabbinic training requires years of study.Beginning in grade school and on through Jewish High School, the Talmud is studied in great depth, much of this study being in the area of torts and legal procedures.In order to enter a Rabbinic ordination program, a person must have at least 4 years of post high school Talmudic study.This may vary slightly amongst the different Rabbinic programs, but rarely is it less than 4 years post high school.This study focuses mostly on Talmudic law.The Rabbinic ordination program is usually an additional 4 years.
This Rabbinic ordination does not qualify one to be a Judge, though the bulk of the 8 years of post high school would have been in Talmudic law.
To be admitted for the course to be a Dayan,
or Rabbinical Judge, one is required to have the regular Rabbinic
ordination.The course to be a Judge
is a minimum of 2 additional years, often 4 or 6, depending on the particular
All of the above is full time study, not part time courses.
Sincerely,
Rabbi ReuvenTradburks
Secretary, Beis Din
of the VaadHarabonim
Appendix
D
B?nai
Brith Subcommittee -- on Review of the
The
B?nai Brith Subcommittee was struck to advise the Ontario Government on
the review of the arbitration process currently underway by Ms. Marion
Boyd.The Chair of the subcommittee
is Mr. John T. Syrtash, B.A. (Hon), LL.B.
Mr.
John T. Syrtash is a senior Partner at Beard Winter LLP (
Mr.
Syrtash was instrumental in creating the "Get" legislation, being section
21.1 of
A
former adjunct Professor of Family Law at the Union Institute (