SESSIONAL PAPER No. 18 and such other regulations & propositions, as we should think fitt to suggest for the forming a proper plan of Civil Government for the said province of Quebeck; and to that end we were directed to take into our Consideration such parts of the annex't report of Governor Murray,' upon the state of the said province as relate to the Civil Government thereof whilst the same was Annex'd to the Crown of France, And were also required to send for Lewis Cramahé Esq' Secretary to Governor Murray and Fowler Walker Esq' Ag nt for the said Province of Quebec, who were Order'd to attend us from time to time, to give us such further Lights and information as might be requisite for the purpose aforementioned. We have perused the several papers referr'd to us, together with the said two Reports and have also been attended by the Gentlemen named in your Order; and upon the whole matter, beg leave humbly to submit to your Lordships such Reflections as have occurred to us in the Course of that imperfect consideration, which we have been Able at this Busy Season of the year to give to the Great subject of the Civil Government of Quebec and the propositions made by the Lords Commrs of Trade and plantations. My Lords, it is evident that Two very principal sources of the Disorders in the province have been. 1st The attempt to carry on the Administration of Justice without the aid of the natives, not merely in new forms, but totally in an unknown tongue, by which means the partys Understood Nothing of what was pleaded or determined having neither Canadian Advocates or Sollicitors to Conduct their Causes, nor Canadian jurors to give Verdicts, even in Causes between Canadians only, Nor Judges Conversant in the French Language to declare the Law, and to pronounce Judgement; This must cause the Real Mischiefs of Ignorance, oppression and Corruption, or else what is almost equal in Government to the mischiefs themselves, the suspicion and Imputation of them. The second and great source of disorders was the Alarm taken at the Construction put upon his Majesty's Proclamation of Oct. 7th 1763. As if it were his Royal Intentions by his Judges and Officers in that Country, at once to abolish all the usages and Customs of Canada, with the rough hand of a Conqueror rather than with the true Spirit of a Lawful Sovereign, and not so much to extend the protection and Benefit of his English Laws to His new subjects, by securing their Lives, Liberty's and propertys with more certainty than in former times, as to impose new, unnecessary and arbitrary Rules, especially in the Titles to Land, and in the modes of Descent, Alienation and Settlement, which tend to confound and subvert rights, instead of supporting them. 1st To the first of these Evils the Order made by your Lordships on the 15th of Nov last founded on the Report of the Lords Commrs of Trades and plantations, requiring the Gov' & Commander in Chief of the province (by an additional Instruction) to Publish an Ordinance for admitting Canadian Jurors, in the several Cases therein express'd, and for permitting Canadian, Advocates, Attorneys, and Proctors, under proper regulations, provides an adequate Remedy. 2 To the Second Evil the Lords Commurs of Trade and plantations by their Report, have apply'd themselves with great Care, ability and Judgement, to suggest Remedys, by pointing out the defects in the late Ordinance of Sept 1764 and reforming the Constitution of Justice; We concur with their Lord in the objections made to the Ordinance; And upon the several articles of the Plan laid Down in that report, the following observations Occur to Us, both for the Confirmation and Improvement of them. 1 The first Article proposes a Court of Chancery consisting of the Gov and Council, who shall also be a Court of Appeals, from whom an appeal will lie to the King in Council; By this Article the Lords of Trade very rightly mean to Invest the Gov and Council with Two different Jurisdictions; The One as a Court of Equity, to give relief originally in that Capacity the other as a Court of Errors, to review in the second Instance the Judgements of the Court of Common Law, mentioned in the next Article. 6-7 EDWARD VII., A. 1907 24 The Second Article proposes a Superior Court of Ordinary Jurisdiction, uniting all the proper powers in Criminal and Civil Cases and matters of Revenue, in this Court, it is recommended that a Chief Justice should preside, Assisted by three puisne Judges; These are required to be conversant in the French Language, and that one of them particularly should be knowing in the French usages. This proposition appears to us well conceive'd; and we submit to your Lordships, whether it may not be adviseable, that they should be instructed to confer sometimes with the Canadian Lawyers most respected for Learning, Integrity and Conduct, who may prove of the greatest assistance to English Judges. Competent Salarys for the Encouragement of Able and Worthy men seem absolutely necessary in this Establishment, with a due distinction between the Chief Justice and his Brethren. The new Judge of Vice Admiralty for America has appointments of £800 per Annum. 3d The Third Article relates to Terms for the sitting of the Superior Court at Quebec, either according to the Terms appointed at Westminster, or as may be more convenient. This matter must be accomodated to the Seasons, Climate and convenience of the people in their Tillage and other General employments, therefore it seems proper to be left to the future Judgement of the Gov' Chief Justice, and Principal servants of the Crown, entrusted with the Government of the province and ought to be fix'd by Ordinance. 4th The Fourth Article proposes four Sessions of Assize, Oyer and Terminer, and Goal Delivery at Quebec, with like special Commissions, once or oftener in the year at Trois Rivieres and Montréal. We submit to your Lordships, that it may be unneces sary to lay down any particular Rules for holding four Sessions in the manner mentioned at Quebec; because all Civil and Criminal Causes arising in that District may be tried at Bar in Term time, or (as the legal Expression is) in Bank By Order of the Judges, or under the General powers of the supreme Court, As to the Circuit Courts to be held once, or perhaps twice in the year (which seems better) at Trois Rivieres and Montreal, We think, that it may be proper to require that the Judges shall continue in each of those places, at the least, for a Certain Number of Days to give time and opportunity for the resort of partys and the convenient Dispatch of Business, in like manner as was done by Henry the 8th in establishing the Courts of Great Sessions for Wales, and by the Parliament in his late Maj Reign, when the Circuit Courts were settled for Scotland. 5th The Fifth Article recommends the Distribution of the province into three Countys or Districts, of which, Quebec, Montreal, and Trois Rivieres shall be the three Capital Towns, and that an Annual sheriff shall be named for each. We are humbly of opinion that this Distribution of the province is more natural and convenient than the plan lately foliowed by the Governor and Council, and it will be more agreeable to the People, as it is conformable to their Antient Division of the Country. But considering the difficulty of procuring English and protestant sheriffs, especially at Trois Rivieres (where at present only Two persons who are half pay Officers reside thus qualified) it may deserve consideration whether such Sheriff should not serve longer than one year, till such time as the gradual increase of Inhabitants may facilitate an Annual Rotation; or whether the Annual Sheriff of Quebec may not also serve that office for Trois Rivieres This will oblige him, to appoint two Deputys or under Sheriffs, that is one for each District, And if this method be taken, the Sheriff may be made an Annual Officer, because Quebec can afford sufficient number of proper persons to supply the Rotation, and Montreal. (it is agreed) Can do the like. 6th The Sixth Article proposes to give the Justices of Peace in the three several Districts, at their General Quarter Sessions, Power to determine finally all causes not exceeding the value of Ten pounds (the Title to Lands not being in Question) with a Jury where it exceeds Five pounds an without one where it falls under that sum, it gives also to Two Justices in Petty Sessions, similar Authority in similar cases, where the value of the matter in dispute is not more than Forty Shillings. The latter Authority appears to us well proposed; but we submit, whether it may not be better to reserve the Jurisdiction in matters exceeding that value as far as Ten pounds to be determined in Quebec, By proceeding in nature of the Civil Bill in Ireland before the SESSIONAL PAPER No. 8 Judges of the superice Cour, te by proceeding in Nature of tõe Montreal twice in the year: The maize of Tes pounds is considera size & Coicer and the reputation of the Justices of Face is as yet scarce enough, esta lose 1 for sare a Jurisdiction; Under this 1-2 We beg leave to suggest that in the Cerset a the Peace for each Distris it may be useful and portlar and ender by Kings Government to his new utjects Havre The Canadians strell be sportmed 75 tices, with the others who are British, particularly if Protestants can be found in for that Office. 7 The seventh and last point mentioned in the Report of the Lords of Trade, on which we shall observe, is that Article, wherein they propose, that in a. Cases where Rights and Claims are founded on events price to the Conquest of Canada the seren Courts shall be Govern d in their proceedings, by the French usages and Customs which have heretofore prevailed in respect to such property. This proposition is undoubtedly right, as far as it goes, in respect of Cases which happen'd, antecedent to the Conquest; but we beg leave to take Occasion from benc to enlarge a little on this subject of the Rule of Judgement to be cbserved in the Courts of Quebec as it is of the greatest moment to the honor and Justice of the Crown, and to the Peace and prosperity of the Province. There is not a Marim of the Comovon Lair more certain than that a Conquerd people retain their antient Customs till the Conqueror shall declare New Laws To change at once the Laws and manners of a settled Country must be attended with hardship and Violence; and therefore wise Conquerors having provided for the security of their Dominion, proceed gently and indulge their Conquer d subjects in all local Customs which are in their own nature indiferent, and which have been received as rules of property or have obtained the force of Laws, It is the more material that this policy be persued in Canada, because it is a great and antient Colony long settled and much Cultivated, by French Subjects, who now inhabit it to the number of Eighty or one hundred thousand. Therefore we are humbly of opinion, that the Judges to be employed by his Majesty in this province will answer all the ends of their trust, both as to the King and to the people, if their conduct in Judicature be modell d by the following General Rules. 1 First in all personal actions grounded upon Debts, promises, Contracts and Agreements, whether of a Mercantile or other nature, and upon terons proper to be compensated in damages, to reflect that the substantial maxims of Law and Justice are every where the same. The modes of proceeding and Trial, and perhaps in some degree also the strict Rules of Evidence may vary, but the Judges in the province of Quebec cannot materially err, either against the Laws of England, or the antient Customs of Canada; if in such Cases they look to those substantial maxims. 2a Secondly in all suits or Actions relating to Titles of Land, the Descent, Alienation, Settlements and incumberances of Real property, We are humbly of opinion, that it would be oppressive to disturb without much and wise deliberation and the Aid of Laws hereafter to be enacted in the province the local Customs and Usages now prevailing there; to introduce at one Stroke the English Law of Real Estates, with English modes of Conveyancing Rules of Descent and Construction of Deeds, must occasion infinite confusion and Injustice. British Subjects who purchase Lands there, may and ought to conform to the fix'd local Rules of Property in Canada, as they do in particular parts of the Realm. or in the other Dominions of the Crown. The English Judges sent from hence may soon instruct themselves by the assistance of Canadian Lawyers and intelligent Persons in such Rules, and may Judge by the Customs of Canada, as your Lord-hips do in Causes from Jersey by the Custom of Normandy; It seems reasonable also, that the rules for the Distribution of personal property in Cases of Intestacy and the modes of assigning and Conveying. It should be adhered too for the present. 3d Thirdly in all suits entertained before the Gov' and Council, as a Court of Chancery or Equity, it is obvious, that the General Rules of Law and Justice must be the same as in the other Courts, according to the subject matter of the suit with this 18-3-12 6-7 EDWARD VII., A. 1907 difference only, that the relief is more compleat and specific and adapted to supply the Defects, or allay the Rigor of those Rules. 4th Fourthly in Criminal Cases, whether they be Capital Offences or misdemeanors, it is highly fitting (as far as may be) that the Laws of England be adapted in the Discription and Quality of the offence itself, in the manner of proceeding to charge the party to Bail or detain him. The Certainty, the Lenity of the English Administration of Justice and the Benefits of this Constitution will be more peculiarly and essentially felt by his Majesty's Canadian Subjects, in matters of Crown Law, which touch the Life, Liberty and Property of the Subject, than in the conformity of his Courts to the English Rules of Real and Personal Estates. This Certainty and this Lenity are the Benefits intended by his Majesty's Royal proclamation, so far as concerns Judicature. These are Irrevocably Granted and ought to be secured to his Canadian subjects, according to his Royal Word. For this purpose it may not be improper upon the appointment of a new Gov' with a new Commission revised and Consider'd by your Lordships, to direct that Governor to publish an explanatory proclamation in the Province, to quiet the minds of the People as to the true meaning of the Royal proclamation of Oct 1763 in Respect to their local Customs and usages, more especially in Titles of Land and Cases of Real property. 5th Fifthly in Rules of process and the Practice of the Courts. We beg leave to suggest, that it may be expedient to order the new Chief Justice,' with the assistance of the other Judges, to be appointed and the Attorney General' of Quebec to consider, and prepare a suitable Plan adapted to the Jurisdiction of the different Courts, and the convenience of the Suitors. The Forms of proceeding out to be simple easy and as summary and expeditious as may consist with the advancement of right and the protection of Innocen e. useful hints may be taken not only from the supreme Courts of Westminster, but from the practice of the Courts in Wales, and from many of the Colonys. Some time will be necessary, before such a plan can be framed and experience alone can perfect it. As soon as they shall have prepared it, the Governor and Council may enact it by an Ordinance and transmit the same in the accustomed manner, to be laid before his Majesty for his Royal approbation. All which is humbly submitted &ca April 14th 1766 C. YORKE Wm DE GREY Endorsed :-Report of the Attorney and Sollicitor General, relative to the Civil Government of the province of Quebec. 13th May 1766. Read at the Committee and the Board of Trade Order'd to prepare a draught of an additional Instruction thereupon &c. N° 9. 1 On Feb. 5th, 1766, an official notice from the Secretary of State was sent to Chief Justice Gregory, stating that in consequence of his conduct His Majesty had no further occasion for his services and that Mr. Wm. Hey was appointed to succeed him. On the 17th of the same month, an official notice was sent to the Governor of Quebec that Hey had been appointed to succeed Gregory as Chief Justice, and direct ing that he should be invested with the office. See Q 3, pp. 1 & 2. For Hey's Commission as Chief Justice, see p. 190. On March 6th, official notice from the Secretary of State was sent to Geo. Suckling that there being no further occasion for his services as Attorney General, Mr. Francis Maseres is appointed to succeed hit. On March 18th official notice was also sent to the Governor of Quebec, of the appointment of Maseres in the place of Suckling. See Q3, pp. 3 & 4. both Of Gregory and Suckling Murray reported, that "our chief Judge and Attorney General are entirely ignorant of the Language of the Natives, are needy in their Circumstances and tho' perhaps good Lawyers and Men of integrity, are ignorant of the World, consequently readier to Puzzle and create Diff cultys then remove them." Q 2, p. 378. SESSIONAL PAPER No. 18 CONSIDERATIONS ON THE EXPEDIENCY OF PROCURING AN ACT OF PARLIAMENT FOR THE SETTLEMENT OF THE PROVINCE OF QUEBEC (BY BARON MASERES) LONDON PRINTED IN THE YEAR MDCCLXVI.' The Difficulties that have arisen in the government of the province of Quebec, and which are likely still to occur in it, notwithstanding the best intentions of those who are intrusted by His Majesty with the administration of affairs there, are so many and so great that the Officers, whom His Majesty has been pleased of late to nominate to the principal departments in that government, cannot look upon them without the greatest uneasiness and apprehension, and despair of being able to overcome them without the assistance of an act of Parliament to ground and justify their proceedings. Two nations are to be kept in peace and harmony, and moulded, as it were, into one, that are at present of opposite religions, ignorant of each others language, and inclined in their affections to different systems of laws. The bulk of the inhabitants are hitherto either French from old France, or native Canadians, that speak only the French language, being, as it is thought, about ninety thousand souls, or as the French represent it in their Memorial, ten thousand heads of families. The rest of the inhabitants are natives of Great Britain or Ireland, or of the British dominions in NorthAmerica, and are at present only about six hundred souls; but, if the province is governed in such a manner as to give satisfaction to the inhabitants, will probably every day increase in number by the accession of new settlers for the sake of trade and planting, so that in time they may equal or exceed the number of the French. The French are almost uniformly Roman Catholics: there were only three Protestant families among them at the time of the conquest of the province; and probably that number is not much increased among them, as no endeavours have been used for their conversion. But, what is more to be lamented, is that they are violently bigotted to the Popish religion, and look upon all Protestants with an eye of detestation. This unhappy circumstance has been, and is still likely to be, a ground of enmity and disunion between the old and new inhabitants. The French insist, not only upon a toleration of the public worship, but on a share in the administration of Justice, as jury-men and justices of the peace, and the like, and on a right, in common with the English, of being appointed to all the offices of the government. The English, on the contrary, affirm, that the laws of England made against the Papists ought to be in force there, and consequently that the native Canadians, unless they think proper to turn Protestants, ought to be excluded from all those offices and various branches of power, and in some degree they seem to be supported in this opinion by a part of the governor's commission; I mean that part which enables him to call and constitute a general assembly of the freeholders and planters of the province: for it is there expressly provided, that no person elected to serve in such an assembly, shall sit and vote there till he has subscribed the declaration against Popery prescribed by the statute 25. Car. 2 which would effectually exclude all the Canadians. Toleration of The grounds upon which the French demand a toleration of the Catholic religion, are partly the reasonableness of the thing itself, they being almost universally of that religion, and partly the stipulation made on that behalf the Roman Catholic Religion. 1 Francis Maseres was appointed Attorney General of the Province of Quebec early in March 1766, though his Commission, as issued at Quebec under the authority of Governor Carleton, is dated Sept. 25th, 1766. These "Considerations were written by Maseres before he went to Quebec, and are of interest not only for the points with which they deal, but in comparison with other important papers afterwards published by him and relating to the question of the government and laws of the Province of Quebec. Representative examples of his later proposals and discussions are included in this volume. 18-3-12 |