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P. MACKLEM, LLB, LLM CJ. ROGERSON, LLB, LLM K.E. SWINTON, LLB, LLM L.E. WEINRIB, LLB, LLM R.C.B. RISK, LLB, LLM J.D. WHYTE, LLB, LLM Canadian Constitutional Law Second Edition 1997 EMOND MONTGOMERY PUBLICATIONS LIMITED TORONTO, CANADA
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Page 1: Second Edition - GBV

P. MACKLEM, LLB, LLM CJ. ROGERSON, LLB, LLM

K.E. SWINTON, LLB, LLM L.E. WEINRIB, LLB, LLM

R.C.B. RISK, LLB, LLM J.D. WHYTE, LLB, LLM

Canadian Constitutional LawSecond Edition

1997EMOND MONTGOMERY PUBLICATIONS LIMITED

TORONTO, CANADA

Page 2: Second Edition - GBV

Table of Contents

Acknowledgments iiiPreface \ xxvTable of Cases xxvii

PART ONE INTRODUCTION TO CANADIANCONSTITUTIONAL LAW

CHAPTER ONE INTRODUCTION 3The Elements of the Canadian Constitution 4The Sources of the Canadian Constitution 5Perspectives on the Constitution 8Constitutional Change ; 8The Lawyer's Role 10ABrief Tour of What Is To Follow 11

CHAPTER TWO CONSTITUTIONAL INTERPRETATION 13P. Bobbitt, "Methods of Constitutional Argument" 13A. Prentice et al., Canadian Women: A History 18Reference Re Meaning of the Word "Persons" in Section 24 of the

British North America Act, 1867 20Edwards v. AG Canada 24

Note: Constitutional Litigation 30Note: Stability and Change in Constitutional Interpretation 30

PART TWO FEDERALISM

CHAPTER THREE CONFEDERATION 33G. Stevenson, Unfulfilled Union, 3d ed 33A. Silver, The French-Canadian Idea of Confederation, 1864-1900 . . . . 39

XI

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CHAPTER FOUR THE LATE NINETEENTH CENTURY:THE CANADIAN COURTS UNDER THE INFLUENCE 45

Citizens Insurance Company v. Parsons 46Russell v. The Queen 55Hodge v. The Queen 59AG Ontario v. AG Canada (The Local Prohibition Reference) 67

CHAPTER FIVE THE EARLY TWENTIETH CENTURY:THE BEGINNINGS OF ECONOMIC REGULATION 79

Lord R.B. Haldane, "Lord Watson" 79Reference Re The Board of Commerce Act, 1919 & The Combines and

Fair Prices Act, 1919 83Fort Frances Pulp and Paper Company v. Manitoba Free Press

Company 88Toronto Electric Commissioners v. Snider 92The King v. Eastern Terminal Elevator Co 95H.E. Smith, "The Residue of Power in Canada" 100J.R. Mallory, Social Credit and the Federal Power in Canada 101A. Cairns, "The Judicial Committee and Its Critics" 103

CHAPTER SIX THE 1930S: THE DEPRESSION AND THE NEWDEAL 107

Proprietary Articles Trade Association v. AG Canada 107Reference Re The Regulation and Control of Aeronautics in Canada . . . 109Reference Re Regulation and Control of Radio Communication in

Canada > 111W.P.M. Kennedy, Our Constitution in the Melting Pot 115V. Macdonald, "Judicial Interpretation of the Canadian Constitution" . . 116AG Canada v. AG Ontario (Labour Conventions) 117AG Canada v. AG Ontario

(The Employment and Social Insurance Act) 122AG British Columbia v. AG Canada

(The Natural Products Marketing Act) 124F.R. Scott, "Some Privy Counsel" 131

CHAPTER SEVEN THE MODERN CANADIAN STATE ANDFEDERALISM ( 133

K. Norrie, R. Simeon, and M. Krasnick, Federalism and the EconomicUnion 134

Note 141

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C H A P T E R E I G H T I N T E R P R E T I N G T H E D I V I S I O N O F P O W E R S . . . . 143I. Federalism 143

R. Simeon, "Criteria for Choice in Federal Systems" 143II. Characterization of Laws 150

A. Pith and Substance 150K. Swinton, The Supreme Court and Canadian Federalism:

The Laskin-Dickson Years 150Starr v. Houlden 152

Notes 172W.R. Lederman, "Classification of Laws and the British North America

Act" 173J.D. Whyte, "Constitutional Aspects of Economic Development

Policy" 178B. Overlap: Necessarily Incidental and Double Aspect 181

Bruce Ryder, "The Demise and Rise of the Classical Paradigm inCanadian Federalism: Promoting Autonomy for the Provincesand First Nations" 181

Note '. 183C. Interjurisdictional Immunity and Reading Down 184

McKay v. The Queen 186Notes and Questions 190

Commission du Salaire Minimum v. Bell Telephone Co. of Canada(Bell #1) 190

Notes 193Commission de la Sante et de la Se'curite' du Travail v. Bell Canada

(Bell #2) 194Notes and Questions 205

III. Paramountcy 206Ross v. Registrar of Motor Vehicles 207Multiple Access Ltd. v. McCutcheon 211

Notes and Questions 215Bank of Montreal v. Hall 216

Notes and Questions 220IV. Constitutional Litigation 224

A. How Do Constitutional Issues Get to Court? 224B. Notice Requirements 227C. Parties and Intervenors 229

CHAPTER NINE PEACE, ORDER, AND GOOD GOVERNMENT 231Note on the Historical Development of the P.O.G.G. Power 231

K. Swinton, The Supreme Court and Canadian Federalism:The Laskin-Dickson Years 233

Reference Re Anti-Inflation Act 239Note: The Anti-Inflation Case and Extrinsic Evidence 258

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Note: Emergency Legislation After the Anti-Inflation Reference . . . 260Note: The National Concern Doctrine After Anti-Inflation 260

R v. Crown Zellerbach Canada Ltd 262Notes 274Note: Jurisdiction Over the Environment 276

Friends of the Oldman River Society v. Canada (Minister of Transport) . 276Note: New Developments 281

CHAPTER TEN ECONOMIC REGULATION 285I. The Constitution and the Economy 285

Black and Co. v. Law Society of Alberta 286Note: The Extent of Internal Trade Barriers 288

II. Provincial Powers Over Economic Regulation 289J.R.S. Prichard with J. Benedickson, "Securing the Canadian Economic

Union: Federalism and Internal Barriers to Trade" 289Note 292

Carnation Co. Ltd. v. Quebec Agricultural Marketing Board 292AG Manitoba v. Manitoba Egg and Poultry Association 296P. Weiler, "The Supreme Court of Canada and Canadian Federalism" . . 304

Note 307Re Agricultural Products Marketing Act 308

Note 313III. Federal Powers Over Economic Regulation 313

A. Regulation of Interprovincial and International Trade 314The Queen v. Klassen 314B. Laskin, "Note on The Queen v. Klassen" 316Caloil Inc. v. AG Canada 318

Note: The Federal Power To Implement International Agreements . 319B. General Regulation of Trade 319

K. Swinton, The Supreme Court and Canadian Federalism:The Laskin-Dickson Years 319

Labatt Breweries of Canada Ltd. v. AG Canada 321Notes 330

General Motors of Canada Ltd. v. City National Leasing 333Note 345

IV. Strengthening the Canadian Economic Union 345A. Constitutional Reform to Reduce Barriers 345

Report of the Special Joint Committee of the Senate and the House ofCommons,A Renewed Canada 346

Questions 347B. Constitutional Change: Strengthening the Federal Role through the

Courts 348C. Constitutional Change through Intergovernmental Cooperation 348D. Constitutional Change through International Influences 349

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CHAPTER ELEVEN NATURAL RESOURCES 351Richard Simeon and Ian Robinson, State, Society and the Development

of Canadian Federalism 351Canadian Industrial Gas and Oil Ltd. v. Government of Saskatchewan . . 353

Notes 360Central Canada Potash Co. Ltd. v. Government of Saskatchewan 360

Note: Proprietary Rights 363Reference re Proposed Federal Tax on Exported Natural Gas 364

Note: Section 92A 374Note: Offshore Minerals 376

CHAPTER TWELVE MORALITY AND THE CRIMINAL LAW 377I. Federal Powers Over Criminal Law : 377

Reference re Validity of Section 5(1) of the Dairy Industry Act(Margarine Reference) 378

Notes 379RJR MacDonald Inc. v. Canada (Attorney General) 381

Notes 388II. Provincial Power to Regulate Morality and Public Order 389

Re Nova Scotia Board of Censors v. McNeil 390Notes 393

Westendorp v. The Queen 396Note 398

Rio Hotel Ltd. v. New Brunswick (Liquor Licensing Board) 398R v. Morgentaler 401

Notes 407

CHAPTER THIRTEEN INSTRUMENTS OF FLEXIBILITY IN THEFEDERAL SYSTEM 409

I. Policy Instruments and Flexible Federalism 409A. The Spending Power 409

Winterhaven Stables Ltd. v. Canada (Attorney General) 412Notes ! 414

B. Intergovernmental Agreements 415Reference Re Canada Assistance Plan (BC) 415

Notes 419C. Delegation 420

Coughlin v. Ontario Highway Transport Board 421II. Amending the Constitution 424

A. The Canadian Process of Constitutional Amendment 424B. Evaluating the Amending Formula 426

A. Cairns, Charter versus Federalism: The Dilemmas of Constitutional Reform426

C. The Future 427

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PART THREE THE JUDICIARY

CHAPTER FOURTEEN THE JUDICIAL FUNCTION 433I. Introduction 433

Separation of Powers and Constitutional Review 433Independence of the Judiciary 436The Judicial Function and Separation of Powers 438

Labour Relations Board of Saskatchewan v. John East Iron Works Ltd. . 440Reference Re Residential Tenancies Act 442

Note Re Jurisprudence Since John East 445II. Limits on Provincial Agencies 447

Note on Grondin 447Sobeys Stores Ltd. v. Yeomans and Labour Standards Tribunal (NS) . . . 448Reference Re Amendments to the Residential Tenancies Act (NS) 453

III. Appellate and Review Jurisdiction 458Note on Farrah 458

Crevier v. Quebec (Attorney General) 459IV. Limits on Parliament 463

McEvoy v. Attorney General of New Brunswick and Attorney Generalof Canada 463

Note 466Note on the Federal Court of Canada and Its Jurisdiction 469

PART FOUR RIGHTS

CHAPTER FIFTEEN ABORIGINAL PEOPLES AND THECONSTITUTION 477

I. Introduction \ 477Alan D. McMillan, Native Peoples and Cultures of Canada:

An Anthropological Overview 477II. The Law of Aboriginal Title 478

Canada, Royal Commission on Aboriginal Peoples, Report, vol. 2,Restructuring the Relationship 479

Guerin v. The Queen 482III. The Distribution of Legislative Authority 489

Four B Manufacturing Ltd. v. United Garment Workers of America . . . . 489Note 493

IV. Treaties 493Patrick Macklem, "First Nations Self-Government and the Borders of

the Canadian Legal Imagination" 494Notes 496

V. The Constitution Act, 1982 497R v. Sparrow 497

Notes 509

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R v. Van der Peet 510Notes 519

R v. Gladstone 520Note on R v. Badger, [1996] 1 SCR 771; 133 DLR (4th) 324 524

VI. Aboriginal Self-Government 526Patrick Macklem, "First Nations Self-Government and the Borders of

the Canadian Legal Imagination" 526Canada, Royal Commission on Aboriginal Peoples, Report, vol. 2,

Restructuring the Relationship 529Note on Delgamuukw v. AG BC 537

R v. Pamajewon and Jones 538Note on the Charlottetown Accord of August 28, 1992 541

CHAPTER SIXTEEN THE COMMON LAW CONSTITUTION 545A.V. Dicey, Introduction to the Study of the Law of the Constitution . . . 546W. Kaplan, State and Salvation: The Jehovah's Witnesses and Their

Fight for Civil Rights 547Roncarelli v. Duplessis 552

CHAPTER SEVENTEEN RIGHTS AND FEDERALISM 559I. Introduction 559II. Federalism and Race 560

Union Colliery Co. v. Bryden 561Cunningham v. Tomey Homma 563Bruce Ryder, "Racism and the Constitution: British Columbia Anti-

Asian Legislation, 1872-1923" 564Quong Wing v. The King ' 565

in. The Implied Bill of Rights 570Reference Re Alberta Statutes 571Saumur v. City of Quebec 576Switzman v. Elbling 582AG Canada v. Dupond 586

CHAPTER EIGHTEEN THE CANADIAN BILL OF RIGHTS . . . 589The Canadian Bill of Rights 589

CHAPTER NINETEEN THE ADVENT OF THE CHARTER 595I. Introduction 595II. The Text of the Charter 595

Section 52 595Section 1 595

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Section 24 596Section 32 596Section 33 597Rights and Freedoms 597Interpretive Provisions 602

III. Some History 602A. Cairns, Charter Versus Federalism 602P. Russell, "The Political Purposes of the Canadian Charter of Rights

and Freedoms" 606Lorraine Weinrib, "Of Diligence and Dice: Reconstituting Canada's

Constitution" 609IV. The Merits of Entrenchment and the Legitimacy of Judicial Review 612

William Bogart, Courts and Country 614Lorraine Weinrib, '"Limitations on Rights' in a Constitutional

Democracy" 617David Beatty, "Human Rights and Constitutional Review in Canada" . . 619Patrick Monahan, Politics and the Constitution: The Charter, Federalism

and the Supreme Court of Canada 620Allan Hutchison, "Waiting for Coraf: A Critique of Law and Rights" . . . 623

CHAPTER TWENTY THE FRAMEWORK OF THE CHARTER 627I. Interpreting Rights 627

Hunter v. Southam 628R v. Therens 630

II. Defining Limitations: Section 1 633A. Prescribed by Law 634

R v. Therens 635Attorney General of Quebec v. Irwin Toy , 636Osborne v. Canada (Treasury Board) 636

B. Justification 638R v. Oakes 639

Note: Dagenais Refinement to the Oakes Test 642Edmonton Journal v. Alberta (Attorney General) 644

III. The Override 646The Background to Ford v. Quebec (Attorney General) 647

Ford v. Quebec (Attorney General) 648Lorraine Weinrib, "Learning to Live With the Override" 652M. Mandel, The Charter of Rights and the Legalization of Politics in

Canada 658Note: Proposals To Change the Override 659Note: Further Reading 661

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CHAPTER TWENTY-ONE RELIGION 663I. Introduction 663II. Sunday Observance 667

R v. Big M Drug Mart Ltd 668Notes 678

Edwards Books and Art Ltd. v. The Queen 680Notes 694

III. Religious Freedom in the Education System 694Note on Zylberberg v. Sudbury Board of Education (Director) . . . . 695

Re Corporation of the Canadian Civil Liberties Association et al. andMinister of Education et al.; Canadian Jewish Congress et al.,Interveners 697

Reference Re Bill 30, an Act to amend the Education Act (Ontario) . . . . 701Adler et al. v. The Queen in right of Ontario et al 704

IV. Religious Freedom in the Family 708B(R) v. Children's Aid Society of Metropolitan Toronto 708

CHAPTER TWENTY-TWO FREEDOM OF EXPRESSION 713I. Introduction: Purposes of the Guarantee 713

R v. Keegstra 713Owen Fiss, Liberalism Divided: Freedom of Speech and the Many Uses

of State Power 716Allan Hutchinson, "Money Talk: Against Constitutionalizing

(Commercial) Speech" 718II. The Scope of Freedom of Expression 719

Irwin Toy v. Quebec (Attorney General) 721Notes and Questions 730

RJR MacDonald Inc. v. Canada (Attorney General) 736Notes and Questions 752

III. Content-Based Restrictions on Expression 753A. Hate Speech 753

Kathleen Mahoney, "Hate Speech: Affirmation or Contradiction ofFreedom of Expression" 754

David Richards, Toleration and the Constitution 755A. Alan Borovy, "How Not To Fight Racial Hatred" 756R. v. Keegstra 756

Notes and Questions 773B. Regulation of Sexually Explicit Expression 781

Catherine A. MacKinnon, "Not a Moral Issue" 781Robin West, "The Feminist-Conservative Anti-Pornography Alliance and

the 1986 Attorney-General's Commission on Pornography Report" . . 782R v. Butler 786

Notes and Questions 797

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IV. Access to Public Property 806Richard Moon, "Access to Public and Private Property Under Freedom

of Expression" 806Committee for the Commonwealth of Canada v. Canada 806Peterborough (City) v. Ramsden 820

Notes and Questions 822V. Freedom of Expression and the Political Process 825

A. Controls on Election Spending 825David Richards, Toleration and the Constitution 826Royal Commission on Electoral Reform and Party Financing, Reforming

Electoral Democracy, vol. 1 827Somerville v. Canada (Attorney General) 830

Notes and Questions 836B. State Support for Political Speech 839

Owen Fiss, Liberalism Divided: Freedom of Speech and the Many Usesof State Power 840

Haig v. Canada 841Native Women's Assn. of Canada v. Canada 845

Notes and Questions 849C. The Right To Vote 851

Reference re Electoral Boundaries Commission Act (Saskatchewan) . . . 852Notes and Questions 857

CHAPTER TWENTY-THREE FREEDOM OF ASSOCIATION 859Reference Re Public Service Employee Relations Act (Alta.) 860

Notes 884Notes on Professional Institute of the Public Service of Canada v.

Northwest Territories 885Patrick Macklem, "Developments in Employment Law: The 1990-91

Term" 886Notes ; . . . 888

Lavigne v. Ontario Public Service Employees Union .'. 889Notes 897

CHAPTER TWENTY-FOUR LIFE, LIBERTY AND SECURITYOFTHEPERSON 899

I. Introduction 899II. An Introduction to Fundamental Justice 900

Reference re Section 94(2) of the Motor Vehicle Act (BC) 902Note: Section 7 and Natural Justice 907

III. The Scope of "Life, Liberty and Security of the Person" 908R v. Morgentaler 908

Note: Abortion: Some Other Issues 924Rodriguez v. British Columbia 925

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IV. The Scope of "Life, Liberty and Security of the Person" Continued:Property, Privacy, and Social Security 938

J.D. Whyte, "Fundamental Justice: the Scope and Application ofSection 7 of the Charter" 939

I. Johnston, "Section 7 of the Charter and Constitutionally ProtectedWelfare" 940

Reference re ss. 193 and 195.1(l)(c) of the Criminal Code 942B(R) v. Children's Aid Society of Metropolitan Toronto 945

Note: The Meaning of "Everyone" 954V. Fundamental Justice Revisited: Vagueness 956

C. Rogerson, "The Judicial Search for Appropriate Remedies Under theCharter: The Examples of Overbreadth and Vagueness" 956

R v. Nova Scotia Pharmaceutical Society 958Note .- 966

CHAPTER TWENTY-FIVE EQUALITY RIGHTS 967I. The Idea of Equality 967

Maimon Schwarzschild, "Constitutional Law and Equality" 967William Black and Lynn Smith, "The Equality Rights" 970

II. Equality as a Legal Standard 974Walter S. Tarnopolsky, "The Equality Rights" 974Maimon Schwarzschild, "Constitutional Law and Equality" 975Dale Gibson, The Law of the Charter: Equality Rights 978Walter S. Tarnopolsky, "The Equality Rights" 980Constitution of the Republic of South Africa, 1966, s. 9 981

III. Evolution of the Text of Section 15 982Legislative History 982

Walter S. Tarnopolsky, "The Equality Rights in the Canadian Charterof Rights and Freedoms" 982

Dale Gibson, The Law of the Charter: Equality Rights 985IV. Early Interpretation and Application of Section 15: The Andrews Test 988

Law Society of British Columbia v. Andrews 988Notes 1000

R v. Turpin 1003Note 1005

V. Gender Equality 1006R v. Hess; R v. Nguyen 1006

Notes : 1012Weatherall v. Canada (Attorney General) 1013Symes v. Canada 1015

Notes 1019VI. Age Discrimination 1024

McKinney v. University of Guelph 1024Notes 1036

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VII. Discrimination Based on Disability 1037Eaton v. Brant County Board of Education 1037

Notes 1041VIII. Discrimination Based on Religion 1045

Adler v. Ontario 1045IX. The "Equality Trilogy of 1995" 1049

Note ;. . 1049Egan v. Canada 1053

Notes 1069X. Section 15(2): Affirmative Action 1074

Harrison v. University of British Columbia 1074Note 1075

CHAPTER TWENTY-SIX LANGUAGE RIGHTS 1077I. Introduction 1077

Andre Braen, "Language Rights" in Michel Bastarache, Andre Braen,Emmanuel Didier, and Pierre Foucher, eds., Language Rights inCanada 1078

Pierre A. Coulombe, Language Rights in French Canada 1080II. Language Rights and the Constitution 1083

A. The Federal Bargain 1083B. Charter Language Rights 1086

III. Interpreting Language Rights 1087AG Quebec v. Blaikie (No. 1) 1087

Notes 1088Societe des Acadiens du Nouveau-Brunswick Inc. v. Association of

Parents for Fairness in Education 1089Notes 1093

Mahe v. Alberta 1094D. Reaume and L. Green, "Education and Linguistic Security in the

Charter" 1102Notes 1106

Ford v. AG Quebec 1107Notes 1112

IV. Constitutional Amendment Proposals 1113

CHAPTER TWENTY-SEVEN APPLICATION 1115I. The Debate About Application To Private Action 1115

Retail, Wholesale, and Department Store Union, Local 580 v. DolphinDelivery Ltd 1116

Notes 1122II. Post Dolphin Delivery: Finding Governmental Action 1126

McKinney v. University of Guelph 1128Notes 1132

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III. Application of the Charter to Courts and the Common Law 1136Hill v. Church of Scientology of Toronto 1136

Notes 1141IV. Who Is Protected by the Charter? 1143

CHAPTER TWENTY-EIGHT ENFORCEMENT OF RIGHTS 1145I. Remedies 1145

A. McLellan and B. Elman, "The Enforcement of the Canadian Charterof Rights and Freedoms: An Analysis of Section 24" 1145

Note 1146K. Roach, Constitutional Remedies In Canada 1147

Note 1149Schachter v. Canada ? 1150

Notes 1160II. Standing 1169III. Court Of Competent Jurisdiction 1171