Halifax (Regional Municipality) v. DeWolfe (E.) Trucking Ltd. et al., (2007) 257 N.S.R.(2d) 276 (CA)

JudgeRoscoe, Cromwell and Saunders, JJ.A.
CourtCourt of Appeal of Nova Scotia (Canada)
Case DateMay 08, 2007
JurisdictionNova Scotia
Citations(2007), 257 N.S.R.(2d) 276 (CA);2007 NSCA 89

Halifax v. DeWolfe Trucking Ltd. (2007), 257 N.S.R.(2d) 276 (CA);

    820 A.P.R. 276

MLB headnote and full text

Temp. Cite: [2007] N.S.R.(2d) TBEd. AU.011

Halifax Regional Municipality (appellant) v. Ed DeWolfe Trucking Limited (respondent)

(CA 272349; 2007 NSCA 89)

Indexed As: Halifax (Regional Municipality) v. DeWolfe (E.) Trucking Ltd. et al.

Nova Scotia Court of Appeal

Roscoe, Cromwell and Saunders, JJ.A.

August 16, 2007.

Summary:

Halifax Regional Municipality (HRM) applied for a declaration that Ed DeWolfe Trucking Ltd. had contravened Bylaw S-602 which prohibited exporting solid waste generated within the municipality to disposal facilities outside the municipality. DeWolfe defended by challenging the validity of the bylaw.

The Nova Scotia Supreme Court, in a decision reported at 247 N.S.R.(2d) 364; 785 A.P.R. 364, held that the provisions in Bylaw S-602 which limited the export of solid waste were beyond the powers conferred on HRM by the Municipal Government Act. HRM appealed and applied for a stay, pending the appeal, of the order declaring the bylaw invalid.

The Nova Scotia Court of Appeal, per Bateman, J.A., in a decision reported at 248 N.S.R.(2d) 398; 789 A.P.R. 398, allowed the application for a stay. The appeal proceeded.

The Nova Scotia Court of Appeal allowed the appeal. The order declaring the bylaw invalid was set aside.

Municipal Law - Topic 1493

Powers of municipalities - Particular powers - Respecting waste disposal (incl. recycling) - At issue was the validity of Halifax Regional Municipality's (HRM) Bylaw S-602 which prohibited exporting solid waste generated within the municipality to disposal facilities outside the municipality - The trial court declared the bylaw invalid - HRM appealed - The Nova Scotia Court of Appeal allowed the appeal - The court disagreed with the trial judge's conclusion that the bylaw had impermissible extra-territorial purposes or effects - While the bylaw had some effects on persons and activities beyond HRM's boundaries, it did so only as an aspect of managing solid waste in the municipality, a core municipal function - The bylaw required the disposal in HRM of waste generated and collected there - The territorial focus and operation of the bylaw was entirely within HRM - See paragraphs 31 to 46.

Municipal Law - Topic 1493

Powers of municipalities - Particular powers - Respecting waste disposal (incl. recycling) - At issue was the validity of Halifax Regional Municipality's (HRM) Bylaw S-602 which prohibited exporting solid waste generated within the municipality to disposal facilities outside the municipality - The trial court declared the bylaw invalid - HRM appealed - The Nova Scotia Court of Appeal allowed the appeal - The court disagreed with the trial judge's conclusion that the bylaw had purely financial and extra-territorial purposes, i.e. securing for HRM tipping fees for waste generated within HRM by interfering with business arrangements outside of HRM - The bylaw had larger purposes: to assure that HRM had management of all of the waste for which it was responsible, to provide a predictable flow of revenue to help fund the waste-management system and to support HRM's efforts to maximize source separation and waste diversion - See paragraphs 50 to 79.

Municipal Law - Topic 1493

Powers of municipalities - Particular powers - Respecting waste disposal (incl. recycling) - At issue was the validity of Halifax Regional Municipality's (HRM) Bylaw S-602 which prohibited exporting solid waste generated within the municipality to disposal facilities outside the municipality - The trial court declared the bylaw invalid - HRM appealed - The Nova Scotia Court of Appeal allowed the appeal - Adopting a purposive and contextual approach, the court determined that the bylaw was within the power granted under s. 325(b) of the Municipal Government Act - The words "regulating the disposal, collection and removal of solid waste" in s. 325(b) permitted HRM to require waste generated and collected in HRM to be disposed of there - This was reinforced by the power conferred in s. 170 to make bylaws regarding matters incidental to the exercise of specific powers - The court rejected the argument that the broad powers conferred by s. 325(b) had to be read restrictively - Given the entire statutory scheme and HRM's responsibility for solid waste under the Environment Act, it was difficult to imagine how the municipality could have been given a more plenary power to manage solid waste - See paragraphs 80 to 120.

Municipal Law - Topic 1493

Powers of municipalities - Particular powers - Respecting waste disposal (incl. recycling) - At issue was the validity of Halifax Regional Municipality's (HRM) Bylaw S-602 which prohibited exporting solid waste generated within the municipality to disposal facilities outside the municipality - The trial court declared the bylaw invalid - HRM appealed - The Nova Scotia Court of Appeal allowed the appeal - The trial judge erred in his approach in (i) insisting on express authority to enact flow controls rather than considering whether such authority was fairly implied from the broad powers conferred and (ii) engaging principles of construction regarding bylaws that created monopolies where this bylaw did not engage those principles - Even under the earlier, stricter approach to the interpretation of municipal statutes, the power to create a monopoly could be granted either expressly or fairly implied - However, the authorities also differentiated between monopoly powers used impermissibly to restrict competition and those which regulated the provision of a core municipal service - Requiring disposal of waste generated within the municipality at sites within it did not create the sort of monopoly or have the extra-territorial effect that required an express grant of authority - See paragraphs 120 to 135.

Municipal Law - Topic 3803

Bylaws - Quashing bylaws - General - Excess of powers - [See all Municipal Law - Topic 1493 ].

Municipal Law - Topic 3844

Bylaws - Quashing bylaws - Grounds for judicial interference - Invalid purpose - [See first and second Municipal Law - Topic 1493 ].

Municipal Law - Topic 3865

Bylaws - Quashing bylaws - Grounds for judicial interference - Restraint of trade - [See fourth Municipal Law - Topic 1493 ].

Cases Noticed:

Shell Canada Products Ltd. v. Vancouver (City), [1994] 1 S.C.R. 231; 163 N.R. 81; 41 B.C.A.C. 81; 66 W.A.C. 81, dist. [para. 25].

Shawinigan Hydro-Electric Co. v. Shawinigan Water and Power Co. (1912), 45 S.C.R. 585, refd to. [para. 44].

Swift Current (City) v. Leslie (1920), 52 D.L.R. 532 (Sask. C.A.), refd to. [para. 44].

Barton (Town) v. Hamilton (City) (1890), 17 O.A.R. 346 (C.A.), affd. (1891), 20 S.C.R. 173, refd to. [para. 44].

St-Paul (Ville) v. Cook (1902), 22 Que. S.C. 498, refd to. [para. 44].

Montreal (City) v. 2952-1366 Québec Inc., [2005] 3 S.C.R. 141; 340 N.R. 305; 2005 SCC 62, refd to. [para. 47].

Allard Contractors Ltd. et al. v. Coquitlam (District) et al., [1993] 4 S.C.R. 371; 160 N.R. 249; 35 B.C.A.C. 241; 57 W.A.C. 241, refd to. [para. 55].

Toronto Taxi Alliance v. Toronto (City) (2005), 205 O.A.C. 160; 77 O.R.(3d) 721 (C.A.), refd to. [para. 78].

United Taxi Drivers' Fellowship of Southern Alberta et al. v. Calgary (City), [2004] 1 S.C.R. 485; 318 N.R. 170; 346 A.R. 4; 320 W.A.C. 4; 2004 SCC 19, refd to. [para. 83].

Bell ExpressVu Limited Partnership v. Rex et al., [2002] 2 S.C.R. 559; 287 N.R. 248; 166 B.C.A.C. 1; 271 W.A.C. 1; 2002 SCC 42, refd to. [para. 83].

Barrie Public Utilities et al. v. Canadian Cable Television Association et al., [2003] 1 S.C.R. 476; 304 N.R. 1; 2003 SCC 28, refd to. [para. 83].

Nanaimo (City) v. Rascal Trucking Ltd. et al., [2000] 1 S.C.R. 342; 251 N.R. 42; 132 B.C.A.C. 298; 215 W.A.C. 298; 2000 SCC 13, refd to. [para. 85].

Morrison v. Kingston (1937), 69 C.C.C. 251 (Ont. C.A.), refd to. [para. 102].

R. v. Greenbaum (M.), [1993] 1 S.C.R. 674; 149 N.R. 114; 61 O.A.C. 241, refd to. [para. 102].

114957 Canada ltée (Spraytech, Société d'arrosage) et al. v. Hudson (Town), [2001] 2 S.C.R. 241; 271 N.R. 201; 2001 SCC 40, refd to. [para. 102].

Nash and McCracken, Re (1873), 33 U.C.Q.B. 181 (Ont. Q.B.), refd to. [para. 125].

R.v. Johnston (1876), 38 U.C.Q.B. 549 (Ont. H.C.), refd to. [para. 125].

Robinson and St. Thomas (City), Re (1893), 23 O.R. 489 (Q.B.), refd to. [para. 125].

Toronto (City) v. Mandelbaum, [1932] O.R. 552 (S.C.), refd to. [para. 125].

Virgo v. Toronto (City) (1894), 22 S.C.R. 447, refd to. [para. 126].

Sept-Iles v. Rioux, [1985] C.A. 295 (Que.), refd to. [para. 126].

Miller and Virden (Town), Re (1906), 16 Man.R. 479, refd to. [para. 131].

Jones and Ottawa (City), Re (1907), 9 O.W.R. 323, affd. 9 O.W.R. 660, refd to. [para. 131].

Tower Co. (1961) Ltd. v. Frobisher Bay (Village) (1979), 29 A.R. 594; 106 D.L.R.(3d) 351 (N.W.T.C.A.), refd to. [para. 132].

Timberline Haulers Ltd. and Norwood Disposal Ltd. v. Grande Prairie (City) (1988), 89 A.R. 188 (Q.B.), affd. (1990), 110 A.R. 16 (C.A.), refd to. [para. 133].

Statutes Noticed:

Halifax (Regional Municipality) Bylaws, Solid Waste Resource Collection and Disposal Bylaw, Bylaw No. S-602, generally [para. 52].

Municipal Government Act, S.N.S. 1998, c. 18, sect. 325(b) [para. 91].

Authors and Works Noticed:

Driedger, Elmer A., Construction of Statutes (2nd Ed. 1983), p. 87 [para. 83].

Makuch, Stanley M., Canadian Municipal and Planning Law (1983), p. 115 [paras. 123, 128].

Rogers, Ian MacF., The Law of Canadian Municipal Corporations (2nd Ed.) (Looseleaf), pp. 26, 27 [para. 135]; 31, s. 6 [para. 43]; para. 131.5 [paras. 124, 126, 127].

Sullivan, Ruth, Sullivan and Driedger on the Construction of Statutes (4th Ed. 2002), pp. 209 to 218 [para. 54]; 296 to 300 [para. 55].

Counsel:

Kevin Latimer, Q.C., and Michelle Kelly, for the appellant, Halifax Regional Municipality;

Bruce Outhouse, Q.C., for the respondent;

John Merrick, Q.C., and William Mahody, for the intervener, Halifax Waste Resource Society;

Peter Rogers and Jessie Irving, law student, for the intervener, the Region of Queens Municipality;

Michael Coyle, for the intervener, Valley Region Solid Waste-Resource Management Authority.

This appeal was heard in Halifax, Nova Scotia, on May 8, 2007, by Roscoe, Cromwell and Saunders, JJ.A., of the Nova Scotia Court of Appeal. On August 16, 2007, Cromwell, J.A., delivered the following reasons for judgment for the court.

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17 practice notes
  • Table of cases
    • Canada
    • Irwin Books Land-use Planning
    • June 23, 2017
    ...LAND-USE PLANNING 622 Halifax (Regional Municipality) v Ed DeWolfe Trucking Ltd, 2007 NSCA 89 .............................................................................................448 Hamilton (City) v Hamilton Distillery Co (1906), 38 SCR 239, [1906] SCJ No 72 ............................
  • Appeals and Judicial Review
    • Canada
    • Irwin Books Land-use Planning
    • June 23, 2017
    ...1974) at 67, cited in Ruth Sullivan, Driedger on the Construction of Statutes , 6th ed (Markham, ON: LexisNexis Canada, 2014) at 7. 105 2007 NSCA 89 at para 88. Appeals and Judicial Review 449 leaves open to courts many options as to whether to view particular provisions more benevolently o......
  • Kings County (Municipality) v. Berwick (Town) et al., 2010 NSSC 128
    • Canada
    • Nova Scotia Supreme Court of Nova Scotia (Canada)
    • April 12, 2010
    ...49; 289 W.A.C. 49; 2002 BCCA 667, refd to. [para. 90]. Halifax (Regional Municipality) v. DeWolfe (E.) Trucking Ltd. et al. (2007), 257 N.S.R.(2d) 276; 820 A.P.R. 276; 2007 NSCA 89, refd to. [para. Pacific National Investments Ltd. v. Victoria (City) et al., [2000] 2 S.C.R. 919; 263 N.R. 1;......
  • Kings County (Municipality) v. Berwick (Town) et al., 2010 NSSC 128
    • Canada
    • Nova Scotia Supreme Court of Nova Scotia (Canada)
    • April 12, 2010
    ...49; 289 W.A.C. 49; 2002 BCCA 667, refd to. [para. 90]. Halifax (Regional Municipality) v. DeWolfe (E.) Trucking Ltd. et al. (2007), 257 N.S.R.(2d) 276; 820 A.P.R. 276; 2007 NSCA 89, refd to. [para. Pacific National Investments Ltd. v. Victoria (City) et al., [2000] 2 S.C.R. 919; 263 N.R. 1;......
  • Request a trial to view additional results
14 cases
  • Kings County (Municipality) v. Berwick (Town) et al., 2010 NSSC 128
    • Canada
    • Nova Scotia Supreme Court of Nova Scotia (Canada)
    • April 12, 2010
    ...49; 289 W.A.C. 49; 2002 BCCA 667, refd to. [para. 90]. Halifax (Regional Municipality) v. DeWolfe (E.) Trucking Ltd. et al. (2007), 257 N.S.R.(2d) 276; 820 A.P.R. 276; 2007 NSCA 89, refd to. [para. Pacific National Investments Ltd. v. Victoria (City) et al., [2000] 2 S.C.R. 919; 263 N.R. 1;......
  • Kings County (Municipality) v. Berwick (Town) et al., 2010 NSSC 128
    • Canada
    • Nova Scotia Supreme Court of Nova Scotia (Canada)
    • April 12, 2010
    ...49; 289 W.A.C. 49; 2002 BCCA 667, refd to. [para. 90]. Halifax (Regional Municipality) v. DeWolfe (E.) Trucking Ltd. et al. (2007), 257 N.S.R.(2d) 276; 820 A.P.R. 276; 2007 NSCA 89, refd to. [para. Pacific National Investments Ltd. v. Victoria (City) et al., [2000] 2 S.C.R. 919; 263 N.R. 1;......
  • Tuteckyj v. Winnipeg (City), 2012 MBCA 100
    • Canada
    • Manitoba Court of Appeal (Manitoba)
    • October 18, 2011
    ...346 A.R. 4; 320 W.A.C. 4; 2004 SCC 19, refd to. [para. 49]. Halifax (Regional Municipality) v. DeWolfe (E.) Trucking Ltd. et al. (2007), 257 N.S.R.(2d) 276; 820 A.P.R. 276; 2007 NSCA 89, refd to. [para. Mulder Investments Ltd. v. Winnipeg (City) (1981), 15 Man.R.(2d) 327 (C.A.), refd to. [p......
  • BM Halifax Holdings Ltd. et al. v. Nova Scotia (Attorney General) et al., 2014 NSSC 430
    • Canada
    • Nova Scotia Supreme Court of Nova Scotia (Canada)
    • November 27, 2014
    ...(City) v. Virgo, [1896] A.C. 88 (P.C.), refd to. [para. 66]. Halifax (Regional Municipality) v. DeWolfe (E.) Trucking Ltd. et al. (2007), 257 N.S.R.(2d) 276; 820 A.P.R. 276 ; 2007 NSCA 89 , dist. [para. Thorne's Hardware Ltd. v. R. - see Irving Oil Ltd., Canaport Ltd., Kent Lines Ltd. a......
  • Request a trial to view additional results
3 books & journal articles
  • Table of cases
    • Canada
    • Irwin Books Land-use Planning
    • June 23, 2017
    ...LAND-USE PLANNING 622 Halifax (Regional Municipality) v Ed DeWolfe Trucking Ltd, 2007 NSCA 89 .............................................................................................448 Hamilton (City) v Hamilton Distillery Co (1906), 38 SCR 239, [1906] SCJ No 72 ............................
  • Appeals and Judicial Review
    • Canada
    • Irwin Books Land-use Planning
    • June 23, 2017
    ...1974) at 67, cited in Ruth Sullivan, Driedger on the Construction of Statutes , 6th ed (Markham, ON: LexisNexis Canada, 2014) at 7. 105 2007 NSCA 89 at para 88. Appeals and Judicial Review 449 leaves open to courts many options as to whether to view particular provisions more benevolently o......
  • JUDICIAL REVIEW OF MODERN MUNICIPALITIES: RETHINKING VIRES REVIEW.
    • Canada
    • March 22, 2015
    ...territorial jurisdiction: Shell, supra note 9 at 277-78; see also, Halifax (Regional Municipality) v Ed Dewolfe Trucking Ltd, 2007 NSCA 89 at paras 31, 35-38, [2007] NSJ No 333. (56) Supra note 39 at para 12. (57) Supra note 26 at para 33. (58) Supra note 39 paras 12-13. (59) London (City) ......

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