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Palliative Care: Captive and Casualty of Carter v Canada?

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Medical Assistance in Dying (MAID) in Canada

Part of the book series: The International Library of Bioethics ((ILB,volume 104))

Abstract

When the Carter v Canada case found the prohibition against euthanasia and physician-assisted suicide unconstitutional, it simultaneously launched an existential threat to the discipline and vocation of palliative care—the view that there is no distinction between palliative care and physician-assisted death. This confronting narrative is often supported by reference to the Carter case, but what did the court actually say? The chapter examines the Carter case to present the court’s findings and observations with respect to palliative care. The chapter also explores subsequent Federal legislative initiatives establishing the practice of “medical assistance in dying” (MAID) as well as initiatives taken to improve palliative care. The reader will perhaps find it interesting to know that the trial court’s findings are consistent with the definition, practice and purposeful vision of palliative care—to address suffering with life-affirming care while not hastening or postponing death. Legal and clinical clarity could be achieved if Canadian law and policy-makers uniformly adopted and cohesively advanced this definition. Yet such clarity does not appear to be forthcoming. It is hoped that this detailed review provides groundwork that can help increase transparency and in turn offer assistance towards securing palliative care as a right of all Canadians.

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Notes

  1. 1.

    In Canada, “medical assistance in dying” or “MAID” refers to a medical practice which includes a form of assisted suicide (whereby a medical or nurse practitioner prescribes or provides a substance to a person, at their request, for self-administration in order to intentionally cause their own death) as well as euthanasia (whereby a medical or nurse practitioner administers a substance to a person, at their request, to intentionally cause their death). Criminal Code of Canada, R.S.C. (1985), c. C-46 at Section 241.1 [hereinafter “Criminal Code”].

  2. 2.

    Bill C-14, (2016), c. 3 at Section 241.2(1)(e) [hereinafter “Bill C-14”]. Bill C-14 received Royal Assent June 17, 2016. Online: https://www.parl.ca/DocumentViewer/en/42-1/bill/C-14/royal-assent.

  3. 3.

    This discussion examines both the trial decision, Carter v Canada (Attorney General) (2012) BCSC 886 [hereinafter “Carter BCSC”] as well as the Supreme Court of Canada decision, Carter v. Canada (Attorney General) (2015) SCC 5, [2015] 1 S.C.R. 331 [hereinafter “Carter SCC”]. Together these cases will be referred to as “Carter” or “Carter v Canada”.

  4. 4.

    For full discussion in Canadian context see, Shariff and Gingerich (2018). Online: https://papers.ssrn.com/sol3/papers.cfm?abstract_id=3191962; For a recent scoping review of the relationship between palliative care and assisted death see Gerson et al. (2020).

  5. 5.

    Herx (2015). Online: https://www.ncbi.nlm.nih.gov/pmc/articles/PMC4399615/.

  6. 6.

    Carter, Footnote 3.

  7. 7.

    The terms “Physician-assisted death” and “physician-assisted dying” are used interchangeably throughout the Carter BCSC decision and were defined by the court to include both the acts of: “physician-assisted suicide” (whereby the patient intentionally kills themselves with assistance of a physician or someone acting under a physician’s direction); and “voluntary euthanasia” (whereby the patient’s life is intentionally terminated by a physician or someone acting under a physician’s direction). See Carter BCSC at paras 23 and 37–39; In Canada, these terms are superseded by the term “medical assistance in dying” or “MAID” when the Criminal Code of Canada was amended to allow these practices in 2016 through the passing of Bill C-14. See Criminal Code, Footnote 1.

  8. 8.

    Carter SCC, Footnote 3.

  9. 9.

    Carter BCSC, Footnote 3.

  10. 10.

    Note that the trial decision was successfully appealed to the BC Court of Appeal on the ground that the trial judge was bound to follow Rodriguez v. British Columbia (Attorney General) (1993), an earlier Supreme Court of Canada decision which upheld the blanket prohibition on assisted suicide. Carter v. Canada (Attorney General) (2013). The case was then appealed to the Supreme Court of Canada. Carter SCC, Footnote 3.

  11. 11.

    Bill C-14, Footnote 2.

  12. 12.

    Criminal Code, Footnote 1.

  13. 13.

    See Bill C-7  2021), c. 2 [hereinafter “Bill C-7”] which received Royal Assent March 17, 2021. Online: https://www.parl.ca/DocumentViewer/en/43-2/bill/C-7/royal-assent.

  14. 14.

    Bill C-277 (2017), c. 28, [hereinafter “Bill C-277”] which received Royal Assent December 12, 2017. Online: https://parl.ca/DocumentViewer/en/42-1/bill/C-277/royal-assent.

  15. 15.

    Because this chapter is specifically examining the Federal MAID legislation and subsequent Federal initiatives in relation to palliative care, this chapter does not include examination of the right to palliative care as established through provincial Quebec medical aid in dying legislation which was implemented prior to the Federal MAID law. See Quebec legislation, An Act respecting end-of-life care, CQLR, c. S-32.0001.

  16. 16.

    Carter BCSC, Footnote 3 at para 44.

  17. 17.

    Carter BCSC, Footnote 3 at para 100.

  18. 18.

    Canadian Charter of Rights and Freedoms  1982), c. 11 [hereinafter “Charter”].

  19. 19.

    Carter BCSC, Footnote 3 at para 1 [sic]. Note that the claimed infringement of s. 7 liberty right of Lee Carter and Hollis Johnson was based on the risk of incarceration for helping a “loved one” obtain an assisted death. Carter BCSC, Footnote 3 at para 17.

  20. 20.

    Carter SCC, Footnote 3 at para 69.

  21. 21.

    Carter BCSC, Footnote 3 at para 1322.

  22. 22.

    Carter SCC, Footnote 3 at paras 57–58; See also Carter BCSC, Footnote 3 at paras 1322, 17.

  23. 23.

    Carter SCC, Footnote 3 at paras 65 and 66; See also Carter BCSC, Footnote 3 at paras 1302–1304.

  24. 24.

    Carter SCC, Footnote 3 at paras 3 and 126.

  25. 25.

    Carter SCC, Footnote 3 at para 147.

  26. 26.

    Note that the Supreme Court initially suspended the declaration of invalidity for 12 months and subsequently granted an additional 4-month extension. See Carter SCC, Footnote 3 at para 147 and Carter v. Canada (Attorney General), 2016 SCC 4, (2016) 1 S.C.R. 13.

  27. 27.

    Carter BCSC, Footnote 3 at para 41. Emphasis added; Note that this definition is consistent with the widely accepted World Health Organization (WHO) definition of palliative care. See for example: WHO (2018) at page 5. Online: https://apps.who.int/iris/bitstream/handle/10665/274559/9789241514477-eng.pdf?ua=1); See also: the International Association for Hospice and Palliative Care (see for example, Palliative Care Definition. Online: https://hospicecare.com/what-we-do/projects/consensus-based-definition-of-palliative-care/definition/) and the Canadian Hospice Palliative Care Association and the Canadian Society of Palliative Care Physicians (see for example, CHPCA and CSPCP - Joint Call to Action. Online: https://www.cspcp.ca/wp-content/uploads/2019/11/CHPCA-and-CSPCP-Statement-on-HPC-and-MAiD-Final.pdf). At the time of writing, the WHO definition was currently under review.

  28. 28.

    Carter BCSC, Footnote 3 at para 199. Emphasis added; See also Carter BCSC, Footnote 3 at para 195.

  29. 29.

    See for example, Carter BCSC, Footnote 3 at paras 38, 39 and 342.

  30. 30.

    The judicial finding in Carter BCSC that there is no “bright-line ethical distinction” between other end-of-life practices and MAID is discussed further below.

  31. 31.

    Carter BCSC, Footnote 3 at para 195; See also discussion Carter BCSC, Footnote 3 at paras 196–199.

  32. 32.

    See Carter BCSC, Footnote 3 at paras 37–39.

  33. 33.

    Carter BCSC, Footnote 3 at paras 188–191.

  34. 34.

    Carter BCSC, Footnote 3 at para 4. Emphasis added.

  35. 35.

    Carter BCSC, Footnote 3 at para 190. Emphasis added; See also Carter BCSC, Footnote 3 at paras 309 and 823.

  36. 36.

    Carter BCSC, Footnote 3 at para 42. Emphasis added.

  37. 37.

    Carter BCSC, Footnote 3 at paras 200–202. Emphasis added.

  38. 38.

    Carter BCSC, Footnote 3 at paras 226.

  39. 39.

    Carter BCSC, Footnote 3 at para 223. Note that the court recognized that this is a controversial area of the law. See Carter BCSC, Footnote 3 at paras 22, 312 and 227–230.

  40. 40.

    Carter BCSC, Footnote 3 at para 226.

  41. 41.

    Carter BCSC, Footnote 3 at para 225; See also Carter BCSC, Footnote 3 at para 231(c).

  42. 42.

    Carter SCC, Footnote 3 at para 23. Emphasis added.

  43. 43.

    Carter BCSC, Footnote 3 at para 1328. Emphasis added.

  44. 44.

    Carter BCSC, Footnote 3 at para 341.

  45. 45.

    Carter BCSC, Footnote 3 at para 4; See also para 309.

  46. 46.

    Carter BCSC, Footnote 3 at para 708.

  47. 47.

    Carter BCSC, Footnote 3 at paras 253, 270, 274.

  48. 48.

    Carter BCSC, Footnote 3 at para 314(l).

  49. 49.

    Carter BCSC, Footnote 3 at para 736; See also Carter BCSC, Footnote 3 at para 9.

  50. 50.

    Carter BCSC, Footnote 3 at Parts II–IV.

  51. 51.

    Carter BCSC, Footnote 3 at para 52.

  52. 52.

    Carter BCSC, Footnote 3 at para 54.

  53. 53.

    Carter BCSC, Footnote 3 at para 54.

  54. 54.

    Carter BCSC, Footnote 3 at para 56; See also Carter BCSC, Footnote 3 at para 315(h).

  55. 55.

    Carter BCSC, Footnote 3 at Part VI.

  56. 56.

    Carter BCSC, Footnote 3 at para 164.

  57. 57.

    Carter BCSC, Footnote 3 at Part VII; See also Carter BCSC, Footnote 3 at paras 173 and 178. According to the court, ethical principles were relevant because they “shape law and medical practice” and because “legal and constitutional issues are derived from and shaped by societal values” Carter BCSC, Footnote 3 at paras 165 and 317.

  58. 58.

    See Carter BCSC, Footnote 3 at paras 944, 1336 and 1369. For additional analysis on whether the “ethical debate” bears any relation to the analysis on the constitutionality of the law see Sean Murphy (2017), pp. 361–362.

  59. 59.

    Carter BCSC, Footnote 3 at para 161. Emphasis added; See also Carter BCSC, Footnote 3 at para 164.

  60. 60.

    Carter BCSC, Footnote 3 at paras 319 and 343; See also Carter SCC, Footnote 3 at para 23.

  61. 61.

    Carter BCSC, Footnote 3 at para 335; See also Carter BCSC, Footnote 3 at para 236.

  62. 62.

    Carter BCSC, Footnote 3 at para 335; See also discussion at Carter BCSC, Footnote 3 at paras 331–333.

  63. 63.

    Carter BCSC, Footnote 3 at paras 207, 220 and 222; See also Carter BCSC, Footnote 3 at para 231(a) and (b).

  64. 64.

    Carter BCSC, Footnote 3 at para 225; See also discussion Carter BCSC, Footnote 3 at para 231(c) and paras 332–334; Sometimes also described as the “double effect doctrine”. Carter BCSC, Footnote 3 at paras 198 and 314(c).

  65. 65.

    Carter BCSC, Footnote 3 at para 199.

  66. 66.

    See discussion in Carter BCSC, Footnote 3 at paras 325–333.

  67. 67.

    Carter SCC, Footnote 3 at para 23.

  68. 68.

    Carter BCSC, Footnote 3 at para 335. Emphasis added.

  69. 69.

    Carter BCSC, Footnote 3 at paras 335 and 338; See also Carter BCSC, Footnote 3 at paras 1336 and 1369.

  70. 70.

    Carter BCSC, Footnote 3 at paras 342 and 358; Referenced in Carter SCC, Footnote 3 at paras 23 and 24.

  71. 71.

    Carter SCC, Footnote 3 at para 24. Emphasis added.

  72. 72.

    Carter BCSC, Footnote 3 at para 314(l).

  73. 73.

    Carter BCSC, Footnote 3 at para 161.

  74. 74.

    Jurisdictions reviewed by the court: Oregon and Washington, Netherlands, Belgium, Switzerland, Luxembourg, Montana, Colombia. Carter BCSC, Footnote 3 at Part VIII.

  75. 75.

    Carter BCSC, Footnote 3 at paras 731–732, 736. Emphasis added.

  76. 76.

    Carter SCC, Footnote 3 at paras 26 and 107.

  77. 77.

    The Belgian 28 May 2002 Act on Euthanasia, B.S. 22 June (2002).

  78. 78.

    Carter BCSC, Footnote 3 at para 507.

  79. 79.

    Carter BCSC, Footnote 3 at para 646 et seq.

  80. 80.

    Carter BCSC, Footnote 3 at para 1386.

  81. 81.

    Carter BCSC, Footnote 3 at para 1274; For a similar argument see Provincial -Territorial Expert Advisory Group on Physician-Assisted Dying (2015) at page 20 [hereinafter “Provincial-Territorial Report”]. Online: https://www.health.gov.on.ca/en/news/bulletin/2015/docs/eagreport_20151214_en.pdf.

  82. 82.

    Carter BCSC, Footnote 3 at para 761.

  83. 83.

    Carter BCSC, Footnote 3 at para 823.

  84. 84.

    See Carter BCSC, Footnote 3 at paras 795–98, 815, 837, and 843; See also Carter SCC, Footnote 3 at para 106.

  85. 85.

    Carter BCSC, Footnote 3 at para 831. Emphasis added; See also discussion in Carter BCSC, Footnote 3 at paras 816–821.

  86. 86.

    Carter SCC, Footnote 3, at paras 104–106, 115.

  87. 87.

    See Carter BCSC, Footnote 3 at para 1151.

  88. 88.

    Carter BCSC, Footnote 3 at para 883; See also Carter SCC, Footnote 3 at para 27 and paras 105–106.

  89. 89.

    Carter SCC, Footnote 3, at para 117.

  90. 90.

    For argument and evidence in this regard see Carter BCSC, Footnote 3 at paras 315(o), 381 and 533.

  91. 91.

    See discussion commencing at Footnote 125 and associated text.

  92. 92.

    See Carter SCC, Footnote 3 at para 20.

  93. 93.

    Carter BCSC, Footnote 3 at para 1362. Emphasis added. According to the Court, the purpose, however, was grounded in the respect for and the desire to protect human life; See Carter BCSC, Footnote 3 para 1190; See also Carter BCSC, Footnote 3 at para 86.

  94. 94.

    See discussion in Carter BCSC, Footnote 3 at paras 1136 and 1122; See also Carter BCSC, Footnote 3 at para 86.

  95. 95.

    Note that the trial court found the infringement to be both overbroad and grossly disproportionate. See Carter BCSC, Footnote 3 at paras 18, 1371 and 1378.

  96. 96.

    Carter SCC, Footnote 3 at para 86 and Carter BCSC, Footnote 3 at paras 1362–1371.

  97. 97.

    Carter SCC, Footnote 3 at para 102.

  98. 98.

    Carter BCSC, Footnote 3 at paras 16 and 1243. Emphasis added; See also Carter SCC, Footnote 3 at para 121.

  99. 99.

    Carter SCC, Footnote 3 at para 121.

  100. 100.

    Carter SCC, Footnote 3 at para 105.

  101. 101.

    Carter SCC, Footnote 3 at para 106.

  102. 102.

    Carter SCC, Footnote 3 at para 147; See also Carter BCSC, Footnote 3 at para 1367.

  103. 103.

    Compare to Carter BCSC, Footnote 3 at para 315(o).

  104. 104.

    Carter BCSC, Footnote 3 at para 335.

  105. 105.

    Carter SCC, Footnote 3 at paras 23 and 24.

  106. 106.

    See for example: Stuart Chambers (2016a). Online: https://impactethics.ca/2016/04/19/incremental-medical-assistance-in-dying/; Lett (2017). Online: https://www.winnipegfreepress.com/opinion/analysis/the-torturous-ethics-of-assisted-death-430492323.html.

  107. 107.

    See Footnote 42 and associated text.

  108. 108.

    Carter BCSC, Footnote 3 at para 335; For further discussion see analysis in McMorrow (2018) at footnote 172; For examples see: Stuart Chambers (2016b) Ottawa Citizen. Online: https://ottawacitizen.com/opinion/columnists/chambers-why-suffering-children-should-have-the-right-to-assisted-dying/

  109. 109.

    Bill C-14, Footnote 2.

  110. 110.

    See Bill C-14, Footnote 2 at Sections 241.1 and 241.2(3). Note that Canada is the only jurisdiction in the world to permit the medical practice of euthanasia by non-physicians. Compare to Carter BCSC, Footnote 3 at para 1389.

  111. 111.

    Bill C-14, Footnote 2 at Section 241.2(1)(e).

  112. 112.

    Bill C-14, Footnote 2 at Section 10.

  113. 113.

    See for example discussion in Provincial-Territorial Report, Footnote 81 at page 20: “The Advisory Group understands that the validity of patient consent lies at the heart of the assessment of eligibility for physician-assisted dying and that lack of access to quality palliative care might, in some specific cases, threaten various elements of a valid consent”.

  114. 114.

    See Footnote 81 and associated text.

  115. 115.

    Bill C-14, Footnote 2 at Preamble.

  116. 116.

    Bill C-14, Footnote 2 at Section 241.2(1).

  117. 117.

    Bill C-14 Footnote 2 at Section 241.1(2)(a)–(d). Emphasis added.

  118. 118.

    Bill C-14, Footnote 2 at Section 241.2 (3).

  119. 119.

    In Truchon v Canada (AG) (2019) the Superior Court of Québec which inter alia found the reasonably foreseeable death requirement in Bill C-14 to be unconstitutional. Note that the Superior Court of Québec also struck down a similar end of life criterion in Quebec’s provincial end-of-life legislation, SQ (2014), c 2. This decision was not appealed by the Attorney General of Canada or Quebec.

  120. 120.

    Bill C-7, Footnote 13.

  121. 121.

    Criminal Code, Footnote 1 at Section 241.2(3).

  122. 122.

    Criminal Code, Footnote 1 at Section 241.2(3.1).

  123. 123.

    Criminal Code, Footnote 1 at Section 241.2(3)(e.1); Note that Bill C-7 also amended certain procedural safeguards for track one (i.e. where death reasonably foreseeable) including removal of the 10 day waiting period.

  124. 124.

    Criminal Code, Footnote 1 at Section 241.2(1) “Eligibility for medical assistance in dying”.

  125. 125.

    Criminal Code, Footnote 1 at Section 241.2(1)(e).

  126. 126.

    Criminal Code, Footnote 1 at Section 241.2(3)(g). Emphasis added.

  127. 127.

    Criminal Code, Footnote 1 at Section 241.2(3)(g).

  128. 128.

    Criminal Code, Footnote 1 at Section 241.2(2)(c). There have been unofficial reports that refusal of treatment for certain medical conditions can render track two patients (i.e. death not reasonably foreseeable) eligible for track one (i.e. death becomes reasonably foreseeable if for example, the patient refuses required medications).

  129. 129.

    Government of Canada, Legislative Background: Bill C-7: Government of Canada’s Legislative Response to the Superior Court of Québec Truchon Decision (2021-09-01) at pages 11–12. Online: https://justice.gc.ca/eng/csj-sjc/pl/ad-am/c7/c7-eng.pdf.

  130. 130.

    CAMAP. Bringing up Medical Assistance in Dying (MAiD) as a clinical care option. Online: https://camapcanada.ca/wp-content/uploads/2022/02/Bringing-up-MAiD.pdf.

  131. 131.

    Health Canada (2021, June) at pages 5, 20 and 21 [hereinafter “Health Canada 2020 Report”]. Online: https://www.canada.ca/content/dam/hc-sc/documents/services/medical-assistance-dying/annual-report-2020/annual-report-2020-eng.pdf.

  132. 132.

    Health Canada 2020 Report, Footnote 131 at pages 20 and 21. For a critical analysis of how MAID data points to a failure of the Canadian health care system see Gallagher (2020, October 19) Policy Options. Online: https://policyoptions.irpp.org/magazines/october-2020/lack-of-palliative-care-is-a-failure-in-too-many-maid-requests/

  133. 133.

    For discussion and examples of data that is available see, Canadian Institute for Health Information (2018). Online: https://www.cihi.ca/sites/default/files/document/access-palliative-care-2018-en-web.pdf.

  134. 134.

    Bill C-277, Footnote 14.

  135. 135.

    Bill C-277, Footnote 14 at Preamble.

  136. 136.

    Bill C-277, Footnote 14 at Section 2(1).

  137. 137.

    Canada, Health Canada (2018) (Ottawa: Government of Canada, December 4) at Appendix A [hereinafter “Framework”]. Online: https://www.canada.ca/content/dam/hc-sc/documents/services/health-care-system/reports-publications/palliative-care/framework-palliative-care-canada/framework-palliative-care-canada.pdf.

  138. 138.

    Framework, Footnote 137 at pages 3 and 17.

  139. 139.

    MAID is identified as one of the “drivers of change”. See Framework, Footnote 137 at page 5.

  140. 140.

    Framework, Footnote 137 at page 3. Emphasis added; See also Framework, Footnote 137 at page 14.

  141. 141.

    Framework, Footnote 137 at footnote vii. Emphasis added.

  142. 142.

    Canada, Health Canada (2019) (Ottawa: Government of Canada, August) [hereinafter “Action Plan”]. Online: https://www.canada.ca/content/dam/hc-sc/documents/services/health-care-system/reports-publications/palliative-care/action-plan-palliative-care/action-plan-palliative-care-eng.pdf.

  143. 143.

    Action Plan, Footnote 142 at page 1.

  144. 144.

    Action Plan, Footnote 142 at page 6.

  145. 145.

    Action Plan, Footnote 142 at page 2. Emphasis added.

  146. 146.

    Action Plan, Footnote 142 at page 2.

  147. 147.

    For a recent study examining stakeholder perspectives on whether progress has been made pursuant to Canada’s palliative care Framework, Footnote 137 and Action Plan, Footnote 142, see Pesut et al. (2022). Online: https://bmcpalliatcare.biomedcentral.com/counter/pdf/10.1186/s12904-022-01074-4.pdf.

  148. 148.

    Action Plan, Footnote 142 at page 1.

  149. 149.

    For recent analysis of palliative care as a human right, see Brennan and Gwyther (2021).

  150. 150.

    Carter BCSC, Footnote 3 at para 4.

  151. 151.

    See Footnote 130 and associated text.

References

Cases

Legislation

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Acknowledgements

Thanks are owed to the editors Jaro Kotalik and David Shannon, research assistants Kyle Wilfer and Michael Siklosi and to the Legal Research Institute at the Faculty of Law, University of Manitoba.

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Shariff, M.J. (2023). Palliative Care: Captive and Casualty of Carter v Canada?. In: Kotalik, J., Shannon, D.W. (eds) Medical Assistance in Dying (MAID) in Canada . The International Library of Bioethics, vol 104. Springer, Cham. https://doi.org/10.1007/978-3-031-30002-8_11

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