The HRTO Record
A public record — compiled from the tribunal's own data and published decisions

Where human rights claims go to die.

That is not our phrase. It is how Tribunal Watch Ontario — a coalition that includes former tribunal chairs and adjudicators — described the Human Rights Tribunal of Ontario in November 2024, based on the tribunal's own published data.

93%
of the HRTO's final decisions in 2023–24 were dismissals without a hearing — most of them aging cases ruled “abandoned” after years of tribunal inactivity. Only 2.7% were substantive decisions on the merits. Source: Tribunal Watch Ontario analysis of HRTO published data, Nov. 2024
Exhibit A — One hundred final decisions

Watch what happens to one hundred claims.

Each card below is one of the HRTO's final decisions in 2023–24, in proportion. Scroll, and the tribunal's own numbers stamp themselves.

93 dismissed without a hearing ~4 other outcomes ~3 decided on the merits
[1]In 2023–24 the HRTO dismissed 1,344 cases for procedural reasons without a hearing — more than double the 610 such dismissals in 2017–18. In roughly 80% of those cases, the applicant was deemed to have “abandoned” the claim.
[2]The tribunal released just 40 final substantive merits decisions in 2023–24 — for the entire province, for an entire year, across every ground of discrimination in the Code.
[3]An estimated 2–3% of applicants will ever receive a full hearing.
Exhibit B — The backlog

Fewer people are filing. The backlog doubled anyway.

If a system's intake falls by a quarter and its queue still doubles, the problem is not the public. It is the system.

4,696
Active case backlog, 2016–17
9,527
Active case backlog, 2022–23 — more than doubled
−2,500
Fewer applications filed 2021–24 vs. the prior three years
−66%
Drop in interim decisions since 2017–18 (743 → 246) — counsel report it is nearly impossible to get a ruling on a motion
[4]Average annual applications fell from 4,449 (three years to 2021) to 3,621 (three years to March 2024). Tribunal Watch Ontario concludes this is unlikely to reflect less discrimination in Ontario — and far more likely to reflect a tribunal that has lost public credibility as a place where claims get resolved.
[5]In 2017–18, 69% of final decisions were released within two years of filing. Today, a person filing a claim who is fortunate enough to reach a full hearing should not expect a final decision until 2028 at the earliest — and more likely 2030 or later.
[5A]In 2022, the HRTO set itself explicit public targets: 70% of hearings scheduled within 180 days, 70% of mediations scheduled within 150 days, 70% of decisions issued within six months of a hearing, and 70% of cases resolved within an 18-month lifecycle. Its own Annual Reports and Business Plans have since stated, year after year, that the HRTO “is unable to report” on its own hearings-scheduled target, citing “data integrity issues” with its case management system. A tribunal that cannot measure whether it is meeting its own targets is not accountable to them.
[5B]Sixteen years is not a metaphor. Dr. Adèle Mercier, a tenured philosophy professor, filed two applications against Queen’s University in 2010 and 2014, alleging gender and disability discrimination after she and colleagues raised concerns on behalf of female graduate students and faculty — concerns a university-commissioned External Climate Review found “legitimate” in 2010. Her applications were deferred twice, in 2013 and 2015, and not reactivated until 2019. A respondent’s motion filed in January 2020 was not addressed at a case management conference until September 2024 — four and a half years later. That conference produced an October 2024 interim decision; a reconsideration request against it was denied in December 2024; an oral hearing followed in May 2025; and the resulting decision, issued January 2026, resolves only jurisdictional questions — who has standing, what is timely — expressly leaving the merits of her discrimination allegations for a hearing not yet scheduled. Four adjudicative steps, fifteen months, and the file was still only at the doorstep of a hearing on the merits. A separate labour arbitration over her forced office relocation, decided in 2019, found the manner of her removal “egregious” and awarded damages for that alone — not, the arbitrator was clear, as any finding on the gender discrimination allegations still pending before the Tribunal.
[6]Roughly 80% of applicants have no lawyer. The Human Rights Legal Support Centre represents about 12% of applicants. The system was designed in 2008 to be navigable by ordinary people telling their story in their own words. It no longer is.
“Damages awards that are too low trivialize the social importance of the Code by creating a licence fee to discriminate.”— Andrew Pinto, review of the Ontario human rights system commissioned by the Attorney General
Exhibit C — How a claim dies

The lifecycle of an “abandoned” application.

“Abandonment” sounds like the applicant walked away. The record shows what actually happens.

Year 0

You file.

You complete a roughly 20-page application, telling your story in your own words — as the system was designed for. Four out of five applicants do this without a lawyer.

Years 1–3+

Silence.

Your file sits in the backlog. In many cases the application is never even served on the respondent. Counsel report that motions and interim requests go unanswered for months or years.

Year 3–5

The file “reactivates” — against you.

The tribunal sends a Notice of Intent to Dismiss or a demand for complex written legal submissions on the factual and legal basis of your claim — the kind of document lawyers are paid to draft. You may get one chance and a short deadline.

The end

Dismissed “as abandoned.”

Dismissals for abandonment nearly tripled — from 374 in 2017–18 to 1,083 in 2023–24. Most dismissed files were filed in 2020 or earlier. When unrepresented applicants do manage to file the demanded submissions, they are almost always ruled inadequate.

Or —

The tribunal dismissed it by mistake.

In 2023–24, 29 of the 39 successful reconsideration requests were granted because of the HRTO's own administrative errors — mostly its failure to upload documents the applicant had actually submitted. In the first quarter of 2024–25 alone: 11 of 13.

[7]The Divisional Court has begun pushing back. In 2025 it called one abandonment dismissal “obviously unfair,” holding that failing to respond to a single email “cannot possibly justify an inference that the Applicant had abandoned the proceeding.” In February 2026, the court barred the tribunal from using the “balance of probabilities” jurisdictional screen that had been used to dismiss claims by the hundreds — a standard the tribunal applied for two years before telling the public it was doing so.
[7A]Effective June 1, 2025, the HRTO introduced mandatory mediation under a revised Rule 15 — and with it, one more way to lose a case: an applicant who fails to attend a scheduled mediation may now have their application dismissed. The rule applies only to applications filed on or after that date. Every case already in the backlog — including every file described on this page — continues under the old, voluntary mediation rules the new system was built to replace. By the tribunal’s own internal statistics, roughly 60% of mediated cases were already resolving at mediation before it was made mandatory, raising the question of what problem the change was actually meant to solve for the backlog itself. The same rule package narrowed the grounds for extension requests, specifying that medical issues will “generally not” justify an extension unless supported by “proper documentation” — a standard now being tested, in real time, in more than one file described on this page.
Exhibit D — The price of dignity

And if you win? The awards trivialize the harm.

For the 2–3% who survive to a hearing and prove discrimination, this is what dignity is worth at the HRTO.

$10–20k
Typical general damages for injury to dignity — including disability discrimination cases
$200k
The highest general damages award in HRTO history, ever (A.B. v. Joe Singer Shoes, 2018 HRTO 107)
$0
Punitive damages, and costs against a losing respondent. The HRTO can award neither — a licence fee, not a deterrent
93%
Of surveyed applicant-side human rights lawyers agree the awards are too low (Osgoode empirical study)
[8]An empirical study of 464 general damages awards, from Osgoode Hall Law School, concluded the awards are “too low to reflect the importance of the equality rights protected by the Code.” Twenty-six of those awards — to applicants who proved discrimination — were for zero dollars.
[9]The Pinto Report said this to the Attorney General more than a decade ago. The compensation framework has not been modernized since.
[10]Ontario's ceiling is another province's floor. In 2021, British Columbia's tribunal awarded a corrections officer $964,197 for workplace racial discrimination — $176,000 for injury to dignity alone, nearly Ontario's entire all-time record. In Nova Scotia, a board of inquiry awarded a bus mechanic $593,507 for racist harassment in 2019, and the province's Court of Appeal later awarded $300,000 in general damages alone to a single complainant in a disability institutionalization case — a sum that on its own would shatter any HRTO record. A respondent who discriminates in Ontario faces, on average, a five-figure award, no costs exposure, and no punitive damages. The same conduct in Halifax or Vancouver carries a very different price.
Exhibit E — When the tribunal itself is the problem

What the published decisions show about the tribunal's own conduct.

Every quotation below is taken verbatim from a published tribunal decision or court ruling, cited by name. This is not commentary. It is the record.

Whearty v. Ontario (Human Rights Tribunal), 2025 ONSC 932 (Div. Ct.)

A three-judge panel found “a fundamental flaw” in an HRTO adjudicator's reasoning.

The adjudicator, facing a bias concern, responded by stripping the applicant of his chosen lawyer instead of stepping aside. The Divisional Court set her decisions aside and remitted the case to a different adjudicator, holding:

“If the concern is one going to reasonable apprehension of bias, the appropriate remedy is for the adjudicator to recuse themselves.”
“Any recusal for bias has an impact on the ability of a tribunal to assign adjudicators. That is the administrative cost of ensuring access to impartial decision making, which is a fundamental component of a fair justice system.”
Peddie v. Ontario, HRTO File 2018-34879-I — filed 2018, still awaiting a merits hearing

A woman reported death threats. Police interrogated her. Eight years later, the tribunal still hasn't heard her case.

Dawn Peddie and her daughter reported that a man had threatened to kill them and drown the daughter. The published record describes officers interrogating the two women complainants — the daughter reduced to tears — while the man faced no consequences. A 2021 tribunal decision found the application had a reasonable prospect of success. The police interview videos, acknowledged by Crown counsel as outstanding since October 2024, have never been produced to the applicant or the tribunal.

Along the way, the same adjudicator whose reasoning the Divisional Court faulted in Whearty dismissed the application as abandoned; the dismissal was later reversed by the tribunal itself following Divisional Court guidance — after more than a year of additional delay. The tribunal's May 25, 2026 endorsement, containing dismissal threats, was emailed directly to Ms. Peddie personally — a represented, trauma-affected applicant — contrary to the tribunal's own Practice Direction on communicating with represented parties.

Peddie v. Ontario, 2025 HRTO 2078, at para. 38 — published on CanLII

A published credibility finding against a brain-injured lawyer's sworn account of his own injury.

Applicant's counsel disclosed a traumatic brain injury to the tribunal eight times over eight months. The published decisions contain no inquiry into his functional limitations, and the accommodation analysis mentions none of the eight disclosures. Instead, after counsel swore an affidavit on the exact one-year anniversary of his injury and transposed the year — a corrected affidavit was filed fifty minutes later and sat before the adjudicator for twenty-seven days — the decision states:

“Although the date of injury provided by counsel must be incorrect as the Decision was issued prior to July 24, 2025, I accept that counsel may have, or have had, ‘lingering effects’ from their head injury, which affected their ability to work.”

The corrected affidavit is not mentioned. The finding — issued without notice, at the very tribunal charged with enforcing the duty to accommodate — is now permanently indexed on CanLII under counsel's name.

Peddie v. Ontario, 2026 HRTO 1011, at paras. 14, 28–42

A female lawyer's Reply excluded before it could be answered.

Co-counsel's Reply Submissions advanced six independent legal grounds for recusal, each anchored in published decisions and timestamped documents. The tribunal excluded that Reply before reaching the merits, ruling that no right of reply existed under its Rules and that the underlying motion and the Respondent's response “adequately capture the positions of the parties” — a determination made without inviting submissions on the point. Of the narrower grounds actually before the tribunal in that underlying motion, two went unaddressed anywhere in the reasons that followed: a prior complaint concerning the same adjudicator, and an outstanding application for judicial review of her own earlier decisions in the file. On the record the tribunal did consider, its entire treatment of counsel's advocacy reads:

“It is clear that the Zahara is unhappy with my decisions, however, the Form 10 does not provide the cogent evidence required to rebut the strong presumption of judicial impartiality.”

In the same decision, the male opposing counsel's submissions are quoted, engaged with, and accepted at paragraphs 18, 22, 24 and 33 — without any characterization of his motivations. Engaging with a male lawyer's logic while recasting a female lawyer's legal argument as emotion is a pattern courts and equality bodies have long identified as a signature of gender bias in adjudication.

[11]Tribunal Watch Ontario has separately documented that HRTO appointments in recent years “have generally not been made in accordance with” the statutory requirement of human rights law expertise, and that few appointees brought proven human rights experience or adjudication experience to the role. The Ontario Human Rights Commission has publicly warned that the tribunal's procedural changes risk limiting access to remedies “particularly [for] those from marginalized communities.”
[12]These are not isolated stories. They are what the tribunal's own published record shows about how it treats disabled counsel, women advocates, and vulnerable applicants — the very people the Human Rights Code exists to protect.
Exhibit F — This is not one file, or one adjudicator

The same pattern shows up across the system.

A note on what follows: this section documents institutional patterns across many adjudicators, over many years. It is not a claim that every HRTO member behaves this way — most decisions are not challenged, most files never reach the Divisional Court, and the adjudicators named in Exhibit E are not interchangeable with the ones named here. The point is the opposite of a single grudge: this keeps happening, to different applicants, before different decision-makers, and the institution has not fixed it.

Sharpe v. CTS Canadian College, 2026 ONSC 1138 (Div. Ct.)

A disability discrimination hearing that took ten years — because the adjudicator left partway through.

Filed in 2015. An in-person hearing began in 2018 but was not completed before the adjudicator left the Tribunal in 2021. A second hearing, held by video conference, was “fraught with procedural anomalies” — the employer was permitted to file new evidence contrary to earlier rulings, while the applicant was denied the chance to cross-examine on it. The Divisional Court found her procedural right to a fair hearing had been violated and called the proceeding's decade-long length “egregious and the exclusive fault of the Tribunal.”

Ramirez v. Rockwell Automation Canada Ltd., 2025 ONSC 1408 (Div. Ct.)

Missing one email was treated as abandoning an eight-year case.

An applicant with no history of non-responsiveness missed a single email. The tribunal deemed the application abandoned and dismissed it. The Divisional Court called the dismissal “obviously unfair,” holding that “failing to respond to one e-mail, in all of the circumstances of this case, cannot possibly justify an inference that the Applicant had abandoned the proceeding.”

Konkle v. Ontario (Human Rights Tribunal), 2025 ONSC 4071 (Div. Ct.)

One day late, genuine confusion, no extension.

The tribunal refused to extend a filing deadline missed by a single day amid genuine jurisdictional confusion. The Divisional Court found the refusal unreasonable: “it is not a reasonable approach to require an accounting for every minute of every day of delay.”

Green v. Ontario (Human Rights Tribunal), 2025 ONSC 6223 (Div. Ct.)

A councillor's racial profiling complaint, dismissed for ignoring the Supreme Court of Canada.

Matthew Green, a Black city councillor, alleged racial profiling by a police officer during a “wellness check.” A police disciplinary hearing cleared the officer; the tribunal then dismissed Green's human rights complaint on that basis. The Divisional Court — the same reviewing judge, Justice Sachs, who found the fundamental flaw in Whearty, in a different proceeding before a different HRTO adjudicator — held the Tribunal had failed to engage with binding Supreme Court authority, calling it the first case of its kind since that authority was decided. The Ontario Human Rights Commission intervened in Green's favour. Remitted to a different adjudicator.

[12A]The HRTO also has its own doctrine, distinct from civil court, for removing individually named respondents once an employer accepts liability for their conduct and has the resources to pay. It is settled Tribunal practice, applied routinely, and applied again in Mercier above — where the individuals originally named were removed from the style of cause once Queen’s accepted responsibility for their alleged conduct. A civil claim carries no equivalent rule: a plaintiff can pursue a named individual defendant directly. The result is structural, not particular to any one adjudicator — but it means the forum itself decides, before any hearing on the facts, whose name stays on the file.
[13]For a unionized worker, the alternative to the tribunal is not obviously better. Under the Supreme Court's doctrine in Weber v. Ontario Hydro, 1995 CanLII 108 (SCC) — tightened further in Northern Regional Health Authority v. Horrocks, 2021 SCC 42 — a dispute that arises from a collective agreement can fall within an arbitrator's exclusive jurisdiction, closing the courthouse door entirely. That leaves grievance arbitration: a process controlled and paid for by the union, not the worker, where the union's duty of fair representation gives it discretion not to pursue an individual's human rights claim at all. The tribunal is supposed to be the alternative. Instead, Ontario continues to litigate which forum even has jurisdiction — see Furgasa v. Toronto District School Board, 2026 ONSC 563, where parallel applications to two different tribunals sought the identical remedy for years before the Divisional Court sorted out which one was even entitled to decide it. A worker caught between an unmotivated union and a tribunal where claims go to die has, in practice, nowhere reliable to go.
[14]The appointments feeding this system have drawn direct public criticism. The appointments feeding this system have drawn direct public criticism from Tribunal Watch Ontario and CBC News reporting in 2020. Sean Weir — formerly CEO and National Managing Partner of one of Canada’s largest law firms, and a former elected councillor in Oakville — was named interim Executive Chair of Tribunals Ontario on an urgent, non-competitive basis: a corporate lawyer with, in Tribunal Watch Ontario’s own words at the time, “no apparent tribunal or adjudicative experience.” The same period saw Tamara Kronis, then shown by Law Society of Ontario records as not currently practising law, appointed Associate Chair of the HRTO — the same Kronis whose later appearance as counsel produced the bias finding in Whearty, above. Kronis stepped down from that role in 2021 to run for federal office. Democracy Watch separately challenged the new appointment process in the Ontario Superior Court, arguing it violated the legislative requirement for independent, merit-based tribunal appointments. Retired administrative lawyer Ron Ellis warned publicly that eliminating security of tenure for adjudicators “destroys both the fact and the appearance of tribunal independence.”
[15]This is not abstract for this file. When a request was made in this proceeding that the matter receive attention from the Executive Chair's office, the Registrar responded in writing that it was “not appropriate to direct correspondence to, or seek intervention from, the Executive Chair in relation to an active HRTO file,” and that any request for relief must go to an adjudicator instead — the same adjudicator whose conduct was the subject of the request. Whatever the appointment process was meant to produce, it did not produce an office that can hear a concern about a sitting member while a file is live.

If this happened to you, the clock is already running.

Persons who have been subjected to discrimination, gender-based or sexist disregard, or disability-related disregard and discrimination by the Human Rights Tribunal of Ontario itself — including disabled counsel whose accommodation needs were never engaged, lawyers and parties whose advocacy was recast as personal reaction rather than legal argument, and applicants whose files were dismissed after years of tribunal inactivity or the tribunal's own errors — should obtain Independent Legal Advice to explore their options.

A two-year limitation period generally runs from the date you knew, or reasonably ought to have known, that you had recourse. Judicial review of a tribunal decision carries far shorter timelines still.

Time may be limited. Seek advice promptly.
Directions — What you can do

Directions.

Styled the way a decision ends — because this is what should actually happen next.

[1]

Get independent legal advice.

Before any deadline passes, speak to a lawyer who is independent of the proceeding — about judicial review, reconsideration, civil options, and preservation of your record. Document everything now: emails, dates, decisions, medical notes.
[2]

Know the judicial review window.

A dissatisfied party may seek judicial review in the Divisional Court. Courts have recently shown a real willingness to intervene where HRTO decisions were procedurally unfair or departed from settled law — and to remit files to different adjudicators.
[3]

Complain — but know the limits before you rely on it.

The Tribunals Ontario Public Complaints Policy nominally routes member-conduct concerns through the Office of the Executive Chair. In practice, on an active file, the Registrar has confirmed in writing that such requests will be redirected to an adjudicator instead — see Exhibit F. The Ontario Ombudsman (1-800-263-1830) investigates tribunal delay and service failures and is not bound by that same limitation. Put a complaint in writing regardless; it creates a record even where it does not create a remedy.
[4]

Alert the Commissions.

The Ontario Human Rights Commission has the power to inquire into systemic issues and to intervene in proceedings in the public interest. Systemic concerns can also be raised with the Canadian Human Rights Commission.
[5]

Read Tribunal Watch Ontario.

The independent coalition whose analyses underpin much of this record publishes ongoing statements and data at tribunalwatch.ca.
[6]

Add your record to this one.

If the tribunal's conduct in your file mirrors what is documented here, we want to know. Anything you send us is used only to evaluate whether we can assist you, is not published or shared without your consent, and does not on its own create a lawyer–client relationship.