London Drugs Ltd. and Brick Warehouse Ltd. v. Red Deer (City), (1987) 81 A.R. 87 (QB)

• Judge: Mason, J.
• Court: Court of Queen's Bench of Alberta (Canada)
• Case Date: September 10, 1987
• Citations: (1987), 81 A.R. 87 (QB)

London Drugs Ltd. v. Red Deer (1987), 81 A.R. 87 (QB)

MLB headnote and full text

London Drugs Limited and The Brick Warehouse Ltd. v. City of Red Deer

(No. 8510-02601)

Indexed As: London Drugs Ltd. and Brick Warehouse Ltd. v. Red Deer (City)

Alberta Court of Queen's Bench

Judicial District of Red Deer

Mason, J.

September 10, 1987.

Summary:

The Hours of Business Bylaw of the City of Red Deer (Bylaw No. 2870/85) restricted the commercial activities of retail sales businesses in the city, with certain exceptions, to specific hours each day with closure on Sunday, unless the business establishment closed to the public for a period of 24 consecutive hours in one of the six days immediately following Sunday. The plaintiffs were major retail sales businesses in the City of Red Deer. They operated on the basis of a seven day work week. The plaintiffs alleged that the bylaw would require them to be closed one day each week and probably Sunday. The plaintiffs commenced an action for a declaration that the bylaw was ultra vires the Municipal Government Act, was uncertain and contrary to the Canadian Charter of Rights and Freedoms ss. 2(a) and 15.

The Alberta Court of Queen's Bench allowed the action in part. The court held that the bylaw was valid except for certain portions which the court found were void for uncertainty. The court was able to sever the uncertain sections to perserve the balance of the bylaw. The court held that the bylaw was not contrary to the freedom of religion guarantee in the Charter, s. 2(a). The court held further that the plaintiffs being corporations and not individuals, were not protected by s. 15 of the Charter. The court also held that the corporations lacked standing to challenge the validity of the bylaw under s. 52 of the Charter, because there were other ways the issues raised could be presented to the court (i.e. by individuals affected by the legislation).

Civil Rights - Topic 386

Freedom of religion - Infringement of - Sunday observance legislation - The City of Red Deer enacted an Hours of Business Bylaw (Bylaw No. 2870/85) which restricted the commercial activities of retail sales businesses in the city, with certain exceptions, to specific hours each day with closure on Sunday, unless the business establishment closed to the public for a period of 24 consecutive hours on one of the six days immediately following Sunday - The Alberta Court of Queen's Bench held that the bylaw did not violate the freedom of conscience and religion (Charter, s. 2(a)) - The court commented also that even if the bylaw did infringe s. 2(1) it would be saved under s. 1 of the Charter as a reasonable limit prescribed by law - See paragraphs 81 to 97.

Civil Rights - Topic 8305

Canadian Charter of Rights and Freedoms - Application of - Persons protected - Charter, s. 15 - Individuals - The Alberta Court of Queen's Bench held that the word "individual" in s. 15 of the Charter did not include corporations - The court held that only "natural persons were protected by s. 15" - The court disagreed that the French version of s. 15(1) which used the word "personne" expanded s. 15(1) to include corporations - See paragraphs 98 to 111.

Civil Rights - Topic 8348

Canadian Charter of Rights and Freedoms - Application - Exceptions - Reasonable limits prescribed by law - Charter, s. 1 - [See Civil Rights - Topic 386 above].

Civil Rights - Topic 8463

Canadian Charter of Rights and Freedoms - Interpretation - Interpretation Act - Application of - The Alberta Court of Queen's Bench stated that neither the federal or provincial Interpretation Acts apply to the Constitution - See paragraph 107.

Civil Rights - Topic 8508

Canadian Charter of Rights and Freedoms - Enforcement - Who may apply - The Alberta Court of Queen's Bench held that the word "individual" in s. 15 of the Charter did not include corporations - Two corporations argued that generally accepted "standing" principles would allow a corporation to raise s. 15 in a declaratory action under s. 52 of the Charter, regardless of whether the word "individuals" included corporations (i.e. the corporations would raise the constitutional issue as citizens who have a general interest in the validity of legislature) - The court held that it would not exercise its judicial discretion in favour of the corporations, assertion of standing where there were individuals affected by the bylaw who could have brought the issue to the court - See paragraphs 112 to 119.

Municipal Law - Topic 1496

Municipalities - Powers - Licensing and regulation of businesses - [See Civil Rights - Topic 386 above].

Municipal Law - Topic 1496

Municipalities - Powers - Licensing and regulation of businesses - The City of Red Deer enacted an Hours of Business Bylaw (Bylaw No. 2870/85) - The Alberta Court of Queen's Bench examined various provisions of the bylaw - The court held that the bylaw should receive a benevolent interpretation - The court declared that the bylaw was not void for uncertainty, except for a few provisions which could be severed from the bylaw - See paragraphs 44 to 80.

Municipal Law - Topic 3390

Bylaws - Enactment - Authority - Penalties - The City of Red Deer enacted an Hours of Business Bylaw respecting retail businesses (Bylaw No. 2870/85) - The bylaw provided for penalties if the bylaw was violated - The Alberta Court of Queen's Bench stated that "there must be statutory authority for the penal provisions of a bylaw and the manner of their imposition" - The court held that the authority for the penalties in the City of Red Deer bylaw was found in ss. 110 and 244 of the Municipal Government Act - See paragraphs 26 to 42.

Municipal Law - Topic 3390

Bylaws - Enactment - Authority - Penalties - The Municipal Government Act (Alta.), ss. 110 and 244, authorized a municipal counsel to enact bylaws respecting fines and imprisonment for contravention of bylaws - The Alberta Court of Queen's Bench discussed the scope of what these two sections authorized a municipal council to do respecting penalties, fines and imprisonment - See paragraphs 26 to 42.

Municipal Law - Topic 3732

Bylaws - Construction or interpretation - Conjunctive v. disjunctive words or phrases - The Municipal Government Act (Alta.), s. 241(2) authorized municipalities to regulate business closing hours and could exempt businesses designated as to size "or" type - The City of Red Deer passed a bylaw exempting certain businesses from closure based on size "and" type - Businesses affected by the bylaw argued that the city could exempt businesses only on the basis of size "or" type and not size "and" type - The Alberta Court of Queen's Bench rejected this argument - See paragraphs 16 to 22.

Municipal Law - Topic 3848

Bylaws - Quashing - Grounds - Uncertainty or vagueness - [See second Municipal Law - Topic 1496 above].

Municipal Law - Topic 3848

Bylaws - Quashing - Grounds - Uncertainty or vagueness - The City of Red Deer Hours of Business Bylaw (Bylaw No. 2870/85) defined a "convenience store" as one which "sells only miscellaneous food and grocery items, dairy products, books, magazines, newspapers, cigarettes, candy, snack food and a selection of miscellaneous items" - The Alberta Court of Queen's Bench held that this definition was uncertain, as was the phrase "house holder garage sales", also used in the bylaw - The court held, however, that these uncertain portions of the bylaw could be severed leaving the remainder of the bylaw valid - See paragraphs 70 to 80.

Municipal Law - Topic 3848

Bylaws - Quashing - Grounds - Uncertainty or vagueness - The Alberta Court of Queen's Bench discussed when a municipal bylaw would be declared void for uncertainty - See paragraphs 44 to 59.

Practice - Topic 219

Persons who can sue and be sued - Individuals or corporations - Status or standing - Validity of legislation - [See Civil Rights - Topic 8508 above].

Trade Regulation - Topic 4621

Retailers - Licensing and regulation - Regulation - Holiday or closing legislation - General - [See Civil Rights - Topic 386 above].

Trade Regulation - Topic 4621

Retailers - Licensing and regulation - Regulation - Holiday or closing legislation - General - [See second Municipal Law - Topic 1496 above].

Words and Phrases

Individual - The Alberta Court of Queen's Bench held that the word "individual" in s. 15 of the Canadian Charter of Rights and Freedoms did not include corporations - See paragraphs 98 to 111.

Cases Noticed:

R. v. Big M Drug Mart Ltd., [1985] 1 S.C.R. 295; [1985] 3 W.W.R. 481; 58 N.R. 81; 60 A.R. 161; 18 C.C.C.(3d) 385; 18 D.L.R.(4th) 321; 37 Alta. L.R.(2d) 97; 85 C.L.L.C. 14,023; 13 C.R.R. 64 (S.C.C.), refd to. [paras. 10, 84, 87, 89, 100, 112].

Skapinker v. Law Society of Upper Canada, [1984] 1 S.C.R. 357; 53 N.R. 169; 3 O.A.C. 321; 11 C.C.C.(3d) 481; 8 C.R.R. 193; 9 D.L.R.(4th) 161, refd to. [paras. 11, 107].

R. v. Debaji Foods Ltd. (1981), 30 A.R. 143 (C.A.), refd to. [paras. 14, 52, 79].

City of Calgary v. S.S. Kresge Co. (1965), 51 W.W.R.(N.S.) 747 (Alta. S.C.), refd to. [para. 16].

Clergue v. H.H. Vivian and Co. (1909), 41 S.C.R. 607, refd to. [para. 19].

Hirsch v. Town of Winnipeg Beach (1961), 26 D.L.R.(2d) 659 (Man. C.A.), refd to. [para. 46].

Re Canadian Occidental Petroleum (1983), 148 D.L.R.(3d) 255 (B.C.S.C.), refd to. [para. 47].

Fawcett Properties Ltd. v. Buckingham County Council, [1961] A.C. 636, refd to. [paras. 49, 50].

Harrison v. Corporation of the City of Toronto (1982-83), 19 M.P.L.R. 311, refd to. [paras. 50, 58, 70].

Arcade Amusements Inc. v. Montreal (1985), 58 N.R. 339; 18 D.L.R.(4th) 161; 29 M.P.L.R. 220, refd to. [paras. 16, 54, 55].

Re Shops Regulations Bylaw of Corporation of City of North Vancouver, [1972] 2 W.W.R. 625 (B.C.S.C.), refd to. [para. 55].

Re Bent, [1940] 2 W.W.R. 697, refd to. [para. 55].

Re Neilson Engineering Ltd. v. Toronto, [1968] 1 O.R. 271 (H.C.J.), refd to. [para. 55].

Re Rolling Lands Ltd. and Regional Municipality of Hamilton-Wentworth (1981), 31 O.R.(2d) 624 (H.C.J.), refd to. [paras. 55, 58, 59, 69].

Municipal District of Springbank v. Render, [1936] 2 W.W.R. 430 (Alta. C.A.), refd to. [para. 56].

R. v. Hadden and Sand (1983), 23 Sask.R. 303; 21 M.P.L.R. 243 (Sask. Q.B.), refd to. [para. 58].

McGowan v. Maryland (1961), 6 L.Ed. 2d 393 (U.S.S.C.), refd to. [para. 59].

Groceteria Limited v. T. Eaton Company Ltd. (1926), 22 Alta. L.R. 92, refd to. [para. 69].

Hamilton Hospitality Industrial Association Inc. v. Hamilton (1981), 32 O.R.(2d) 353 (Div. Ct.), not folld. [para. 70].

Re Kakamousias and Pizza Limited (1984), 46 O.R.(2d) 508 (Co. Ct.) refd to. [para. 70].

R. v. Sandler, [1971] 3 O.R. 614 (H.C.J.), refd to. [para. 70].

Swan City Foods Ltd. v. Grande Prairie, City of (1983), 48 A.R. 249; 27 Alta. L.R.(2d) 261 (Q.B.), refd to. [para. 72].

City of Dartmouth and S.S. Kresge Co. Ltd., Re (1966), 5 N.S.R. 1965-69 423; 58 D.L.R.(2d) 229 (N.S.S.C.), refd to. [paras. 47, 72].

Re Bunce v. The Town of Cobourg, [1963] 2 O.R. 343 (C.A.), refd to. [para. 72].

R. v. Videoflicks et al., [1986] 2 S.C.R. 713; 71 N.R. 161; 19 O.A.C. 239; 55 C.R.(3d) 193, appld. [para. 81].

R. v. Edward Brooks and Art Ltd. - see R. v. Videoflicks.

Edward Books and Art Ltd. - see R. v. Videoflicks.

Edmonton Journal v. Attorney General for Alberta et al. (1983), 42 A.R. 383; 146 D.L.R.(3d) 673, refd to. [para. 106].

Re section 4(2) of the Motor Vehicle Act (B.C.), [1985] 2 S.C.R. 486; 63 N.R. 266; [1986] 1 W.W.R. 481; 23 C.C.C.(3d) 289; 48 C.R.(3d) 289; 69 B.C.L.R. 145; 36 M.V.R. 240; 18 C.R.R. 30; 24 D.L.R.(4th) 536 (S.C.C.), refd to. [para. 103].

R. v. Dubois, [1985] 2 S.C.R. 350; [1986] 1 W.W.R. 193; 62 N.R. 50; 66 A.R. 202; 48 C.R.(3d) 193; 22 C.C.C. (3d) 513; 41 Alta. L.R.(2d) 97; 18 C.R.R. 1; 23 D.L.R.(4th) 503, refd to. [para. 103].

R. v. Collins, [1987] 1 S.C.R. 265; 74 N.R. 276; 56 C.R.(3d) 193 (S.C.C.), refd to. [para. 106].

Aerlinte Eireann Teoranta v. Canada (1987), 9 F.T.R. 29 (F.C.T.D.), folld. [para. 108].

Milk Board v. Clearview Dairy Farm Inc., [1987] 4 W.W.R. 279 (B.C.C.A.), folld. [para. 108].

Smith, Kline & French Laboratories Ltd. v. Canada, [1986] 1 F.C. 274; 12 F.T.R. 81; 24 D.L.R.(4th) 321; 7 C.P.R.(3d) 145; 19 C.R.R. 233, folld. [para. 108].

Mund v. Medicine Hat (1986), 67 A.R. 11 (Q.B.), folld. [para. 108].

Homemade Winecrafts (Canada) Ltd. v. Attorney General of British Columbia (1986), 26 D.L.R.(4th) 468 (B.C.S.C.), folld. [para. 108].

Surrey Credit Union v. Mendonca (1986), 67 B.C.L.R. 310 (S.C.), refd to. [para. 108].

K Mart Canada Ltd. v. Millmink Developments Ltd. (1987), 31 D.L.R.(4th) 135 (Ont. S.C.), folld. [para. 108].

Kurolak et al. v. Saskatchewan (Minister of Highways and Transportation) (1986), 48 Sask.R. 92; 28 D.L.R.(4th) 273 (Sask. Q.B.), folld. [para. 108].

Milk Board v. Clearview Dairy Farms Inc. (1986), 69 B.C.L.R. 220 (S.C.), not appld. [para. 109].

Thorson v. Attorney General of Canada, [1975] 1 S.C.R. 138; 43 D.L.R.(3d) 1; 1 N.R. 225, refd to. [paras. 113, 114, 119].

Aluminium Co. of Canada Limited v. R. (1986), 29 D.L.R.(4th) 583 (Ont. S.C.), folld. [para. 108].

McNeil v. Nova Scotia Board of Censors, [1976] 2 S.C.R. 265; 12 N.S.R.(2d) 85; 5 N.R. 43; 32 C.R.N.S. 376; 55 D.L.R.(3d) 632, refd to. [paras. 113, 114, 119].

Borowski v. Minister of Justice of Canada, [1981] 2 S.C.R. 575; 39 N.R. 331; 12 Sask.R. 420; [1982] 1 W.W.R. 97; 24 C.R.(3d) 352; 24 C.P.C. 62; 64 C.C.C.(2d) 97; 130 D.L.R.(3d) 588, refd to. [paras. 113, 114, 115, 119].

Cabre Exploration Ltd. v. Arndt and Alberta, [1986] 4 W.W.R. 261; 69 A.R. 296, dist. [para. 116].

Statutes Noticed:

City of Red Deer Bylaw No. 2870/85, Hours of Business Bylaw.

Interpretation Act, R.S.A. 1980, c. I-7, sect. 10 [para. 45]; sect. 25(2)(c) [para. 40].

Interpretation Act, R.S.C. 1970, c. I-23 [para. 106].

Municipal Government Act, R.S.A. 1980, c. M-26, sect. 110 [para. 27 et seq.]; sect. 241 [para. 13]; sect. 244 [para. 27 et seq.].

Authors and Works Noticed:

Halsbury's Laws of England (4th Ed.), vol. 28, para. 1329 [para. 48].

Meredith and Wilkinson, Canadian Municipal Manual (1917), p. 254 [para. 51].

Pigeon, Louis-Philippe, Redaction et Interpretation des Lois (1978) [para. 16].

Red Deer Central Alberta: The Future is Now [para. 6].

Rogers, The Law of Canadian Municipal Corporations (2nd Ed. 1971), vol. 1, pp. 390, 471, 472 [para. 51]; 474 [para. 24]; vol. 2, p. 1033 [para. 79].

Counsel:

T.W. Wakeling, for the plaintiff;

N.P.W. Riebeek, for the defendant.

This case was heard before Mason, J., of the Alberta Court of Queen's Bench, Judicial District of Red Deer, who delivered the following decision on September 10, 1987.