Consitutional-2-2017 PDF

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Division'of'Legislative'Powers' In#Canada,#power#is#divided#between#two#or#more#levels#of#government#that#are#equal#in#status.#Our#written#constitution#entrenches#this# division#of#powers#by#speci=ically#enumerating#which#subject#matters#are#federal#(found#in#s.91)#and#which#powers#are#provincial#(found#in#s. 92).#Only#laws#that#fall#within#the#legislative#jurisdiction#are#valid,#or,#intra#vires.#To#help#in#this#endeavor,#judge’s#discretion#and#value# judgment#is#largely#used#(Lederman)#in#that#the#preamble,#purposes#clause,#Hansard#evidence,#legal#effects#and#practical#effects#are#all# balanced.#However,#when#a#subject#matter#does#not#fall#within#the#enumerated#grounds#of#jurisdiction#in#the#constitution,#and#is#challenged# in#the#court,#a#party#may#take#any#one#of#3#routes.#It#is#important#to#note#this#is#far#from#mechanistic#(Swinton).#It#re=lects#courts#movement# to#cooperative#or#modern#federalism#that#interprets#provincial#and#federal#laws#expansively#to#respect#the#democracy#principle.#The#‘watertight’#compartments#metaphor#is#contrary#to#living#tree#principle.## TEST:##Is#the#provincial#/#federal#legislation#(against/pro5iting/regulating)#XYZ#a#valid,#applicable,#and#operable#statute?#Where#there#is#a#gap# (not#enumerated),#we#turn#to#the#POGG#power.#

Validity' The#validity#/#division#of#powers#question#always#comes#before#the#Charter#question#since#the#CA#only#applies#to#sections#which#are#valid# under#DOP.#Validity#of#a#law#depends#on#whether#it#falls#within#the#classes#of#subjects#enumerated#in#the#CA.#Judges#have#to#(1)#determine#the# ‘matter’#or#‘pith#and#substance’#of#a#challenged#statute,#(2)#interpret#the#scope#of#the#‘classes#of#subjects,#or#heads#of#power,#(3)#assign#the# statute#to#the#head#or#heads#of#power#that#the#embrace#the#law’s#subject#matter.#However,#it#is#not#very#common#for#a#statute#to#be#struck# down#on#a#division#of#powers#issue.##

(1)#Pith#and#Substance# To#determine#P&S,#we#look#at#the#law’s#purpose#and#effects.#As#Sopinka#noted#in#Morgantaler,#there#is#no#formula#for#determining#the#pith# and#substance#of#a#law#–#it#require#a#balance#of#legal#skill,#respect#for#established#rules,#and#plain#common#sense.#It#is#not#an#exact#science,# but#rat.#Lederman#notes#it#refers#to#the#law’s#dominant#characteristic#which#is#judged#to#be#the#most#important#one#in#that#respect.#Can#look# at#Hansard#evidence,#as#well#as#practical#effects#and#legal#effects#of#law.#A#law#may#also#be#colorable#(Ref#Re:#Firearms#Act)#in#that#it#purports# to#do#one#thing,#but#intends#the#other#(Morgentaler)#i.e.#the#effect#of#the#law#diverges#substantially#from#the#stated#aim.# # Case:'Morgentaler1 ## To#successfully#challenge#“Insert”,#the#provincial#gov’t#needs#to#prove#the#law#is#in#pith#and#substance#in#relation#to#the#matters#falling#under# s.92.#The#federal#government#will#need#to#defend#it’s#a#s.91#matter#and#vice-versa###

(2)#Double#Aspect# Where#the#subject#matter#of#a#law#may#in#some#respects#fall#under#a#federal#head#of#power,#while#also#falling#under#a#provincial#head#of# power#(Hodge)#or#when#federal#and#provincial#features#of#a#law#are#or#roughly#equal#importance#(Multiple#Access).#Allows#the#fed#gov’t#to# prohibit#something,#and#the#provincial#gov’t#to#create#the#regulatory#framework#to#monitor#it#(i.e.#export#of#natural#resources).#Not#a#useful# analytical#tool,#just#help#us#realize#that#heads#of#power#aren’t#always#exclusive.### # Case:'Multiple#Access2 #

(3)#Ancillary#Powers# Even#if#a#challenged#provision,#considered#in#isolation,#is#P&S#ultra#vires,#it#may#be#upheld#as#valid#if#it#has#a#suf=iciently#strong#connection#to# the#objectives#of#the#larger#valid#scheme#of#regulation#which#it’s#a#part.#These#incidental#effects#that#may#be#ultra#vires#are#required#to#give# effect#to#the#broader#legislation.# TEST:## (1)#does#the#provision#intrude#on#provincial#power,#and#to#what#extent?## (2)#is#the#Act#valid?# (3)#Is#the#impugned#provision#suf5iciently#well-integrated#into#the#scheme#as#a#whole?#Is#there#a#rational#connection#(or#is#it#necessary#in#cases#of# more#serious#intrusions)#to#the#achievement#of#the#larger#scheme?# ' Case:'GM#v#City#National#Leasing3 # “You#have#asked#me#to#…#Prior#to#doing#so,#we#must#acknowledge#that#the#principle#of#federalism#….#In#order#to#determine#if#a#law#was#validly#enacted#by#a#jurisdiction,#the#courts# must#determine#its#pith#and#substance,#or#its#dominant#aspect.#(Talk#about#sources).#In#this#case,#the#pith#and#substance#can#be#determined#by#looking#at#the#statute’s#….#Thus,#the# legislation,#in#pith#and#substance,#seeks#to#….#“'

1#SCC#1993;##Medical#Services#Act#(NS#provincial#law)#ruled#unconstitutional#in#that#it#is#deemed#federal#criminal#law#and#thus#ultra#vires#provincial#power;#

validity#turs#on#pith#and#substance#doctrine#which#demonstrates#that#the#province#was#coupling#a#moral#prohibition#with#a#penalty#(i.e.#s.91(27)#crim#power)# 2#SCC#1982;#Ontario#Securities#Act#deemed#valid#provincial#law,#despite#encroaching#on#Federal#commerce#power;#(McCuthcheon#argues#it’s#a#federal#power#

despite#it#not#being#enumerated#-#POGG#used#to#=ill#gap#in#Federal#power#that#didn’t#address#it);#doubt#aspect#allows#matter#to#be#regulated#at#both#federal#and# provincial#levels#since#feds#regulate#POGG#and#provinces#regulate#property#&#civil#rights# 3#SCC#1989;#challenge#to#the#validity#of#the#civil#remedy#provision#(provincial#tort#law)#of#the#federal#Competition#Act#which#is#valid#under#GRT#branch

Applicability' Interjurisdictional#Immunity:## BINNIE#-#Unpopular#in#that#it#runs#against#the#cooperative#view#of#federalism#and#runs#against#pith#and#substance#/#ancillary#doctrine.# “Canadian#federalism#is#not#simply#a#matter#of#‘legalisms’”# If#IJI#was#applied#to#Federal#Trade#and#Commerce#power#à#would#lead#to#a#rigid#and#centralized#form#of#federalism#where#provincial# governments#play#no#role# Even#if#there#is#no#law#at#one#level#of#government,#a#law#at#another#level#of#government#cannot#even#have#incidental#effects#on#the#‘core’# jurisdiction#…#increase#the#risk#of#legal#vacuums.#Runs#risk#of#creating#unintentional#centralizing#tendency#in#constitutional#interpretation#…# not#a#cooperative#view#of#federalism## “Must#take#incremental,#case-by-case#approach#…#not#closed-off#determinate#approach#to#heads#of#power”# TEST:#to#invoke#IJI#doctrine,#provincial#statute#must#impair#(ie,#adversely#affect,#or#signi=icantly#or#seriously#intrude#on)#the#exercise#of#a#core# (“vital#or#essential”)#element#of#federal#jurisdiction.#Where#IJI#is#raised,#there#is#no#double#aspect#to#the#matter#regulated.#Has#only#worked#to# protect#fed#legislation#but#could#be#used#other#way#in#theory.#Remedy#is#to#read-down# Cases:'CDN#Western#Bank#v#Alberta4# Quebec#v#COPA5 # 3rd#step:#Only#get#here#if#you#conclude#the#law#passes#validity#(either#P&S,#ancillary,#or#a#double#aspect#matter)#

Operability'(of'Valid'and'Applicable'Laws)' Paramountcy## In#a#DOP#analysis,#this#the#3rd#step.#Arises#when#(a)#provincial#law#is#valid,#(b)#federal#law#is#valid#(c)#both#laws#apply#to#the#facts#(d)#both# laws#con=lict#with#each#other#…#if#so,#Federal#paramountcy#rule#applies#meaning#federal#law#prevails#over#provincial#or#municipal#law#(which# is#suspended#or#rendered#inoperative#to#the#extent#of#its#inconsistency).#The#provincial#law#is#NOT#invalid#or#inapplicable,#it#is#simply# inoperative.## TEST#(Dickson#J#in#Multiple#Access)#–#The#de=inition#of#‘con=lict#with#each#other’#requires#two#laws#that#have#an#‘express#contradiction’#or# ‘impossibility#of#dual#compliance’#(narrow#interpretation#to#protect#provincial#autonomy)#AND;' TEST#(LaForest#in#Hall)#–#Con=lict#=#frustration#of#federal#legislative#process#(lowers#threshold)## # Case:#Multiple#Access6 # # # Bank#of#Montreal#v#Hall7# Rothmans 8#

4#SCC#2007;#IJI#shouldn’t#be#relied#upon#in#future 5 #SCC#2010;#valid#Quebec#law#regulating#private#airstrips#doesn’t#con=lict#with#federal#law#Aeronautics#Act,#but#because#it#impedes#on#core#of#Aeronautics#

power#(POGG#decision#Johannesson),#it#needs#to#be#read#down;#court#says#need#to#avoid#legal#vacuums#in#CDN#Western#Bank,#but#then#upholds#a#vacuum#in# COPA# 6#SCC#1982;#Federal#statute#and#Provincial#statute#regulate#insider#trading#in#federal#companies;#both#statutes#valid;#ruled#a#double-aspect#matter#above;#

McCutcheon#tries#to#use#paramountcy#to#avoid#being#subject#to#stringent#provincial#laws;#DICKSON#says#‘no’;#duplication#of#procedural#options#is#not#a#form#of# con=lict#as#required#by#the#paramountcy#test# 7#SCC#1990;#Hall#(farmer)#defaults#on#loan;#valid#Federal#legislation#allows#for#immediate#seizure#of#collateral#(s.91.15),#valid#Provincial#legislation#requires#

judicial#hearing#before#seizure#(s.92.13);#laws#con=lict#&#paramountcy#applied#with#new#de=inition;#provincial#law#frustrates#the#purpose#of#the#federal#law#so#it must#be#suspended#as#inoperable# 8#SCC#2005;#con=irms#2#tests#for#paramountcy#and#tells#court#to#take#restrained#approach#to#paramountcy#because#of#the#great#weight#placed#on#provincial#

autonomy#in#Canadian#federalism#and#DOP

Peace'Order'&'Good'Government' “It#shall#be#lawful#for#[Parliament]#to#make#Laws#for#the#Peace,#Order#and#good#Government#of#Canada,#in#relation#to#all#matters#not#coming# within#the#Classes#of#Subjects#by#this#Act#assigned#exclusively#to#the#Legislatures#of#the#Provinces;#and#for#greater#Certainty,#but#not#so#as#to# restrict#the#Generality#of#the#foregoing…”#[the#enumerated#list#of#s.91#powers#follows]# POGG#is#a#stock#phrase#of#imperial#governance#used#in#colonial#context.#Was#used#in#Local#Prohibition#(1896)#to#describe#Parliament’s# ‘general#power’#à#courts#no#longer#look#at#it#like#a#general#power#to#respect#Federalism#principle#–#concerned#about#overwhelming# provincial#governments,#but#revived#in#Temperance#Case#in#1946#as#emergency#power.#Today,#we#approach#it#using#the3#branches.#When# faced#with#a#challenge#to#federal#law,#courts#=irst#consider#enumerated#heads#of#power#in#91/92#before#moving#on#to#POGG.##POGG#implicates# a#philosophical#consideration#of#federalism.#I.e.#Laskin#takes#pro-Federal#government#/#centralist#view#of#POGG#power#whereas#Beetz#takes# pro-provincial#autonomy#approach#to#federalism#

Gap'/'Residuary'branch' Does#not#embrace#matters#simply#because#they#are#‘new’.##New#matters#(with#the#aid#of#the#living#tree#principle)#are#normally#allocated#to# one#of#the#enumerated#heads#of#power#in#s.91#or#s.92.#HOGG:#Fills#conceptual#gaps,#or#completes#‘incomplete’#assignments#in#our#division#of# power.'Purely#residual#aspect#becomes#source#of#federal#jurisdiction#that#is#rarely#invoked.## Cases:' o incorporation#of#companies#with#national#objects#(federal#company#law#power#in#Multiple#Access)' o offshore#resources#Re#Newfoundland#Continental#Shelf' o regulation#of#pollution#in#interprovincial#rivers#Interprovincial#Co-Operatives#' o use#of#language#in#or#regulation#of#federal#government#department#(Oldman#River)#' o power#to#implement#Canadian#international#treaties?#(1930s#Radio#Reference)'

National'concern/dimension'branch'' Matters#that#are#local#or#provincial#have#dimensions#that#become#of#concern#to#county#as#a#whole.#Russel#(1882)#calls#POGG#a#‘general# power’#/#originates#as#dicta#in#Local#Prohibition#1896#and#ignored#by#PC#until#1946#when#revived#by#Canada#Temperance#Foundation#Case.# Upholds#legislation#in#relation#to#aeronautics#(Johannesson),#national#capital#region#(Munro),#marine#pollution#(Crown#Zellerbach)#and#atomic# energy#(Ontario#Hydro9 ).#Essentially#amends#the#division#of#powers#by#adding#that#subject#matter#to#s.91#list.'Concern,#again,#about#provincial# autonomy#in#using#this#power#as#an#assumption#to#legislate#on#s.92#areas.#National#concern#doctrine#accounts#for#matters#(i)#not#known#at# Confederation#(ii)#local#at#time#of#Confederation#but#have#since#evolved#to#be#national#(living#tree#principle)' Cases:#Anti-In5lation#Reference10# # # R#v#Crown#Zellerbach11##

TEST:'' 1.

Goes#beyond#the#provincial#or#local#interests#and#concerns#nation#as#a#whole'

2.

Must#have#a#singleness,#distinctiveness#and#indivisibility#that#clearly#distinguishes#it#from#matters#of#provincial#concern' • Provincial#Inability#Test#à#helps#the#analysis#to#consider#what#the#effect#of#provincial#failure#to#regulate#would#be#on# extra-provincial#interests.#This#can#strengthen#the#case#for#allocating#the#matter#to#national#concern#branch#of#POGG#but#is# not#determinative.#' o Need#to#consider#the#provinces’#failure#or#inability#to#regulate,#the#possibility#of#non-cooperation#by#the# provinces,#or#the#off-loading#of#costs#to#provinces' o

3.

Scale#of#impact#on#provincial#jurisdiction#that#is#reconcilable#with#the#fundamental#distribution#of#legislative#powers#'

Dissent#in#Zellerbach#(Beetz)#à#controlling#marine#pollution#is#potentially#as#broad#as#controlling#in=lation,#yet,#the#majority#didn’t#allow# national#concern#to#emerge#successful#in#that#case.#Instead,#Anti-In5lation#was#upheld#on#emergency#doctrine##

9#SCC#1993;#labour#relations#at#a#nuclear#plant#ruled#to#be#federal#jurisdiction#as#production,#use,#and#application#of#atomic#energy#is#a#national#concern#whose#

misuse#could#be#catastrophic#(not#used#under#‘gap’#branch#of#‘emergency’#branch) 10#SCC#1976;#Most#important#case#in#Canada#regarding#federalism;#Economic#crisis#in#Canada;#SCC#accepts#reference#from#Trudeau#given#controversy#

surrounding#the#Federal#government’s#wage#and#income#control#legislation;#rejected#as#national#concern#and#upheld#under#emergency#powers,#but#Beetz# articulates#test#for#national#concern#doctrine# 11#SCC#1988;#Federal#legislation#(Ocean#Dumping#Act)#prohibits#dumping#any#substances#into#provincial#marine#waters;#challenged#as#being#ultra#vires#federal#

jurisdiction;#SCC#holds#it#is#NOT#ultra#vires,#but#a#matter#of#national#concern#under#POGG#power;#is#suf=iciently#indivisible

Emergency'branch' (Burden#of#demonstrating#invalidity#on#challenger).'In#times#of#suf=iciently#great#emergency,#such#as#those#arising#out#of#war#or#economic# crises,#Parliament#has#the#temporary#jurisdiction#to#enact#any#legislation#it#believes#is#necessary#to#address#a#crisis.#Powerful#doctrine#with#a# profound#impact#on#federalism#–#the#limitations#based#on#division#of#powers#are#temporarily#suspended;#Parliament’s#jurisdiction#becomes# plenary#although#Charter#rights#still#in#effect.'Parliament#determines#whether#an#emergency#exists#–#can#be#challenged#by#provinces#–#now,# there#is#a#federal#review#body.#Provincial#laws#still#valid#during#an#emergency,#but#only#to#extent#they#don’t#contradict#a#federal#statute#.' Federal#laws#enacted#under#emergency#are#temporary#and#cannot#become#permanent#' TEST:'Challenger#has#burden#of#establishing#high#(insurmountable)#threshold#à#LASKIN#in#Anti-In5lation#à#must#present#very#clear# evidence#that#the#conditions#identi=ied#by#parliament#lacked#a#rational#basis.## Laskin'–'cooperative#federalism#may#result#when#subject#matter#not#enumerated,#but#it#is#not#a#ground#for#denying#federal#legislative#power.## Betz'–'the#Act#interferes#with#provincial#jurisdiction#in#a#frontal#and#large#scale#way.#Can’t#just#look#at#title#of#the#legislation#and#classify#it.# Says#in=lation#was#the#occasion#for#the#Act,#not#the#subject#matter#of#the#Act.#Parliament#is#suspending#the#constitution#by#way#of#innuendo#or# suggestion#and#not#being#explicit.#Also#says#the#opt#in/out#choice#of#provinces#kind#of#detracts#from#argument#its#an#emergency' Anti-In'lation12 +Dissent:'Laskin#(majority)#assumes#the#Anti-In=lation#legislation#will#be#temporary,#whereas#Beetz#(dissent)#says#the#failure# to#mention#explicitly#that#it#is#a#‘temporary#measure’#invoked#for#‘emergency#purposes’#is#fatal#to#the#government.#Acting#like#a#stick#in#the# mud,#but#remember#he’s#very#protective#of#provincial#autonomy#and#wants#government#to#state#their#intentions#clearly#' Cases:'Fort#Frances,#Japanese#Canadians#Reference,#Anti-In5lation,#War#Measures#Act'

Application'of'the'Charter'' Section'32:'Charter#applies#to#“the#Parliament#and#government#of#Canada#in#respect#of#all#matters#within#the#authority#of#Parliament#including# all#matters#relating#to#the#Yukon#Territory#and#Northwest#Territories”#and#“to#the#legislature#and#government#of#each#province#in#respect#of#all# matters#within#the#authority#of#the#legislature#of#each#province.”## By#virtue#of#the#above,#the#Charter#surprisingly#applies#only#to#federal#/#provincial#legislatures#and#governments.#Generally,#s.32#does#not# apply#to#private#or#non-governmental#individuals#or#organizations#(Dolphin#Delivery).#But#in#some#case,#these#entities#are#engaged#in# governmental#actions#which#make#the#Charter#apply.#Charter#will#follow#private#actors#into#government#terrain,#and#government#actors#into# private#terrain.#While#Charter#doesn’t## Does#not#Apply:# Private#Actors#(Dolphin#Delivery13)#or#private#litigation#based#on#common#law#only#(obiter#in#Dolphin#Delivery#says#common#law#should#evolve# in#a#manner#consistent#with#Charter#values#–#McIntyre)## Does#Apply:# Statutes#and#regulations#when#relied#upon#in#public#or#private#litigation#(criticism#of#Dolphin#Delivery#‘line-drawing#exercise)# Common##law#when#relied#upon#by#government#actor#(BCGEU)# Should#also#guide#the#development#of#the#common#law#to#be#consistent#with#Charter#values#(Dolphin#Delivery#/#Hill#v.#Church#of#Scientology,# Grant#v#Torstar)#

I.

Determining'if'a'Governmental'Actor:'

If#the#entity#is#part#of#the#‘apparatus#of#government’#then#it#is#bound#to#comply#with#the#Charter.#Despite#Dolphin#Delivery#decision,#this#makes# judiciary#subject#to#Charter#(except#in#private#litigation#resolved#purely#on#common#DD).#To#determine#whether#an#entity#is#part#of# government,#court#uses#the#McKinney#Substantial#Control#Test.#If#answer#is#yes#to#either,#then#they#are#bound#to#comply:# Test' 1. Is#the#entity#subject#to#regular#or#routine#(substantial)#control#by#government#over#its#day-to-day#activities?#(McKinney)#OR# 2. Is#the#entity#exercising#governmental#function?#(public#funding#of#entity#not#suf=icient#or#determinative#-#McKinney)#Godbout# Factors:# a. Is#the#entity#created#by#statute?##

12#System#of#price#and#wage#controls#(1976)#to#correct#national#economic#crisis;# 13#SCC#1986;#Union#(RWDSU)#questions#the#validity#of#the#injunction#Dolphin#Delivery#obtained#against#RWDSU#on#the#basis#that#it#violates#their#s.2(b)#right#of#

freedom#of#expression;#McIntyre#says#Charter#does#not#apply#to#litigation#between#private#parties#depending#on#common#law,#but#it#is#applicable#if#relying#on# legislation;#criticized#for#drawing#an#arbitrary#distinction#by#Hogg,#and#for#not#delivering#on#promise#of#securing#basic#human#rights;#Dolphin#Delivery#af=irmed# in#Hill##

b. c. d.

Does#it#derive#its#power#from#statute?# Is#it#democratically#elected#and#accountable?# Does#it#have#law-making#or#taxation#powers?##

*If#entity#is#not#part#of#apparatus#of#government#and#fails#above#test,#it#is#non-governmental.#But#a#non-governmental#entity#may#still#be# subject#to#comply#with#Charter#in#some#of#its#activities.##

Application#of#Test# McKinney## o University#of#Guelph#funded#by#government#and#enacted#by#legislation,#but,#funding#and#function#not#determinative#–#applying# Charter#to#autonomous#institutions#would#sti=le#academic#freedom## Douglas#College## o Different#decision#from#McKinney#because#community#college#is#subject#to#day-to-day#control#and#government#can,#at#any#time,# direct#its#operations# Canadian#Blood#Services# o Not#under#regular#and#routine#control#of#government## Stoffman# o Extraordinary#control#not#determinative#–#even#though#government#appoints#14/16#members#of#hospital#board,#it#is#not#controlled# by#government#on#day#to#day#basis# GTVA# o Charter#applies#to#Vancouver#Transport#Authority#as#its#controlled#by#government#and#delivering#a#public#function# Godbout 14#(SCC#1997#LaForest)# o Municipalities#(even#in#Quebec)#are#subject#to#the#Charter#–#not#because#they#meet#the#Substantial#Control#test#(McKinney),#but# because#they#exercise#governmental#functions#(Godbout)# 1. Municipalities#are#democr...