Ontario English Catholic Teachers' Association et al. v. Ontario (Attorney General) et al., (1998) 69 O.T.C. 321 (GD)

• Judge: Cumming, J.
• Court: Ontario Court of Justice General Division (Canada)
• Case Date: July 22, 1998
• Jurisdiction: Ontario
• Citations: (1998), 69 O.T.C. 321 (GD)

OECTA v. Ont. (A.G.) (1998), 69 O.T.C. 321 (GD)

MLB headnote and full text

Temp. Cite: [1998] O.T.C. TBEd. JL.123

Ontario English Catholic Teachers' Association, Marshall Jarvis, Claire Ross and Annemarie Ross (applicants) v. Attorney General of Ontario (respondent) and Ontario Catholic School Trustees' Association and Association Franco-Ontarienne des conseils scolaires catholiques (intervenors)

(97-CV-137668)

Ontario Public School Boards' Association, Upper Grand District School Board, The Toronto District School Board, Ontario Secondary School Teachers' Federation, Federation of Women Teachers' Associations of Ontario, Ontario Public School Teachers' Federation, Elizabeth Sandals, Joleene Kemp, David Edwards and Robert Churchill (applicants) v. The Attorney General of Ontario (respondent) and Association des conseillers (ères) des écoles publiques de l'Ontario and Annie Kidder (intervenors)

(98-CV-139317)

Indexed As: Ontario English Catholic Teachers' Association et al. v. Ontario (Attorney General) et al.

Ontario Court of Justice

General Division

Cumming, J.

July 22, 1998.

Summary:

The applicants applied for declarations that various parts of the Education Quality Im­provement Act, S.O. 1997, c. 31 ("Bill 160"), were unconstitutional and of no force and effect. Bill 160 placed significant limi­tations upon the powers of local school boards to control their budgets and expendi­tures and moved those powers to the execu­tive branch of the provincial government. The applicants argued that the removal of some of those powers from local school boards violated s. 93(1) of the Constitution Act, 1867, which guaranteed constitutional protection to denominational rights. At issue was: 1) whether Bill 160 and the Funding Model prejudicially affected any right or privilege held by the Roman Catholic com­munity with respect to denominational schools under s. 93; 2) whether the provi­sions of Bill 160 relating to the supervision of school boards' financial affairs and pro­viding for vesting orders were unconstitu­tional; 3) whether Bill 160 contravened s. 93(1) as it applied to public schools and the public school system; 4) if Bill 160 did not contravene s. 93(1), did the provisions of Bill 160 which took away the school boards' powers to determine and levy property tax rates for school purposes, nonetheless con­travene constitutional convention; 5) were the provisions of Bill 160 which gave the executive branch of government legislative powers with respect to education, unconsti­tutional in that they violated and undermined the "rule of law" and the principle of effec­tive representation through responsible tax­ation; and 6) was Bill 160 unconstitutional in giving the Minister of Finance powers respecting taxation, including the power to determine the amount thereof free from legislative scrutiny, debate and approval, without the submission of a "Money Bill", thus constituting "taxation without represen­tation", contrary to ss. 53 and 54 and the preamble of the Constitution Act, 1867.

The Ontario Court (General Division) answered issue 1 in the affirmative, holding that Bill 160, insofar as it removed the taxation power from the Roman Catholic educational community, violated s. 93(1) of the Constitution Act, 1867. The court answered issues 2 through 6 in the negative.

Constitutional Law - Topic 25

General - Raising constitutional issues - Proof required - Legislative facts versus adjudicative facts - See paragraphs 100 to 103.

Constitutional Law - Topic 63

General - Conventions - Nature of - See paragraphs 157 to 172.

Constitutional Law - Topic 482

Powers of parliament and the legislatures - Limitations on powers of parliament - Rule of law - See paragraphs 173 to 188.

Constitutional Law - Topic 601

Powers of parliament and the legislatures - Delegation of power - General - See paragraphs 178 to 184 and 188.

Constitutional Law - Topic 605

Powers of parliament and the legislatures - Delegation of power - Taxing powers - See paragraphs 173 to 220.

Constitutional Law - Topic 9542

Education - Separate or denominational schools - Extent of constitutional guaran­tees under s. 93, Constitution Act 1867 - See paragraphs 39 to 99, 121 to 156.

Constitutional Law - Topic 9549

Education - Separate or denominational schools - Ontario - See paragraphs 1 to 223.

Constitutional Law - Topic 9555

Education - Separate or denominational schools - Taxes - See paragraphs 1 to 223.

Courts - Topic 2086

Jurisdiction - Extent of - Interpretation of statute ousting jurisdiction - See para­graphs 117 to 118.

Cases Noticed:

Minority Language Educational Rights, Re (1984), 4 O.A.C. 321; 47 O.R.(2d) 1 (C.A.), refd to. [para. 2].

Daly et al. v. Ontario (Attorney General) et al. (1997), 49 O.T.C. 1 (Gen. Div.), refd to. [para. 41].

Greater Hull School Board v. Quebec (Attorney General) (1984), 56 N.R. 99; 15 D.L.R.(4th) 651 (S.C.C.), refd to. [para. 41].

Reference Re Roman Catholic Separate High Schools Funding, [1987] 1 S.C.R. 1148; 77 N.R. 241; 22 O.A.C. 321; 40 D.L.R.(4th) 18, refd to. [para. 42]

Education Act Amendment Act (Ont.), Reference Re - see Reference Re Roman Catholic Separate High Schools Funding.

Reference Re Bill 30, An Act to Amend the Education Act (Ont.) - see Reference Re Roman Catholic Separate High Schools Funding.

Protestant School Board of Greater Montreal v. Quebec (Procureur général) et al. (1989), 92 N.R. 327; 20 Q.A.C. 241; 57 D.L.R.(4th) 521 (S.C.C.), refd to. [para. 43].

Ottawa Roman Catholic Separate School Board v. Ottawa (City) (1915), 24 D.L.R. 497 (Ont. H.C.), refd to. [para. 44].

Hirsch v. Montreal Protestant School Board, [1928] 1 D.L.R. 1041 (Que. P.C.), refd to. [para. 44].

Tiny Roman Catholic Separate School Board v. R., [1927] S.C.R. 637, refd to. [para. 51].

Ottawa Roman Catholic Separate School Board v. Ottawa (City) (1916), 30 D.L.R. 770 (Ont. C.A.), refd to. [para. 51].

Brophy v. Manitoba (Attorney General), [1895] A.C. 202 (P.C.), refd to. [para. 51].

Caldwell v. Catholic Schools of Vancouver Archdiocese (1984), 56 N.R. 83; 15 D.L.R.(4th) 1 (S.C.C.), refd to. [para. 55].

Ottawa Roman Catholic Separate School Board v. Ottawa (City) (1916), 32 D.L.R. 10 (P.C.), refd to. [para. 56].

Public School Boards Association (Alta.) et al. v. Alberta (Attorney General) et al. (1998), 216 A.R. 201; 17 W.A.C. 201 (C.A.), refd to. [para. 72].

Renvoi relatif à la Loi sur l'instruction publique, L.Q. 1988, c. 84, [1993] 2 S.C.R. 511; 154 N.R. 1; 56 Q.A.C. 1; 105 D.L.R.(4th) 266, refd to. [para. 80].

Reference Re Education Act (Que.) see Renvoi relatif à la Loi sur l'instruction publique, L.Q. 1988, c. 84.

Ontario Home Builders' Association et al. v. Board of Education of York Region et al., [1996] 2 S.C.R. 929; 201 N.R. 81; 93 O.A.C. 241; 137 D.L.R.(4th) 449, refd to. [para. 85].

Board of Trustees of Roman Catholic Separate Schools of Belleville v. Graing­er (1878), 25 Ch. 570, refd to. [para. 89].

Ottawa Roman Catholic Separate School Board v. Mackell (1916), 32 D.L.R. 1 (P.C.), refd to. [para. 89].

Court of Unified Criminal Jurisdiction, Re; McEvoy v. New Brunswick (Attorney General) and Canada (Attorney General), [1983] 1 S.C.R. 704; 48 N.R. 228; 46 N.B.R.(2d) 219; 121 A.P.R. 219; 148 D.L.R.(3d) 25, refd to. [para. 102].

Danson v. Ontario (Attorney General), [1990] 2 S.C.R. 1086; 112 N.R. 362; 41 O.A.C. 250; 50 C.R.R. 59; 74 O.R.(2d) 763; 73 D.L.R.(4th) 686, refd to. [para. 102].

Ottawa Separate School Trustees v. Ottawa (1916), 32 D.L.R. 10 (P.C.), appld. [para. 104].

Ottawa Separate School Board, Re (1917), 41 O.L.R. 259 (C.A.), appld. [para. 112].

Adler et al. v. Ontario et al., [1996] 3 S.C.R. 609; 204 N.R. 81; 95 O.A.C. 1; 140 D.L.R.(4th) 385, appld. [para. 123].

Ontario Public School Boards' Association et al. v. Ontario (Attorney General) (1997), 37 O.T.C. 22; 151 D.L.R.(4th) 346 (Gen. Div.), agreed with [para. 127].

Board of Education (Calgary) v. Alberta (Attorney General) and Calgary Roman Catholic Separate School District No. 1 (1979), 28 A.R. 366; 106 D.L.R.(3d) 366 (Q.B.), refd to. [para. 136].

Schmidt v. Calgary Board of Education and Alberta Human Rights Commission (1976), 1 A.R. 286; 72 D.L.R.(3d) 330 (C.A.), refd to. [para. 137].

Board of Education (Calgary) v. Alberta (Attorney General) and Calgary Roman Catholic Separate School District No. 1 (1981), 28 A.R. 359; 122 D.L.R.(3d) 249 (Alta. C.A.), refd to. [para. 137].

Constitutional Amendment References 1981 (Man., Nfld., Que.), [1981] 1 S.C.R. 753; 39 N.R. 1; 11 Man.R.(2d) 1; 34 Nfld. & P.E.I.R. l; 95 A.P.R. 1, refd to. [para. 160].

New Brunswick Broadcasting Co. and Canadian Broadcasting Corp. v. Speaker of the House of Assembly (N.S.) et al., [1993] 1 S.C.R. 319; 146 N.R. 161; 118 N.S.R.(2d) 181; 327 A.P.R. 181; 100 D.L.R.(4th) 212, refd to. [para. 164].

MacMillan Bloedel Ltd. v. Greenpeace Canada et al., [1996] 2 S.C.R. 1048; 199 N.R. 279; 79 B.C.A.C. 135; 129 W.A.C. 135; 130 D.L.R.(4th) 385, refd to. [para. 167].

Hodge v. R. (1883), 9 App. Cas. 117 (Ont. P.C.), refd to. [para. 180].

Gray, Re (1918), 42 D.L.R. 1 (S.C.C.), refd to. [para. 181].

Reference Re Chemicals Regulations, [1943] S.C.R. 1; [1943] 1 D.L.R. 248; 79 C.C.C. 1, refd to. [para. 181].

Nova Scotia (Attorney General) v. Canada (Attorney General), [1950] 4 D.L.R. 369 (S.C.C.), refd to. [para. 183].

R. v. Nova Scotia Pharmaceutical Society (No. 2), [1992] 2 S.C.R. 606; 139 N.R. 241; 114 N.S.R.(2d) 91; 313 A.P.R. 91; 74 C.C.C.(3d) 289, refd to. [para. 185].

R. v. National Fish Co., [1931] Ex. C.R. 75, refd to. [para. 196].

Reference Re Canada Assistance Plan (B.C.), [1991] 2 S.C.R. 525; 127 N.R. 161; 1 B.C.A.C. 241; 1 W.A.C. 241; 83 D.L.R.(4th) 297, refd to. [para. 198].

Agricultural Products Marketing Act, R.S.C. 1970, Re, [1978] 2 S.C.R. 1198; 19 N.R. 361; 84 D.L.R.(3d) 257, refd to. [para. 200].

Eurig Estate v. Ontario Court (General Division) Registrar (1997), 96 O.A.C. 354; 31 O.R.(3d) 777 (C.A.), refd to. [para. 203].

Mercure v. Saskatchewan, [1988] 1 S.C.R. 234; 83 N.R. 81; 65 Sask.R. 1; 48 D.L.R.(4th) 1, refd to. [para. 206].

Statutes Noticed:

British North America Act, 1867, sect. 53, sect. 54 [para. 193]; sect. 93(1) [para. 2].

Constitution Act, 1867 - see British North America Act, 1867.

Education Act, R.S.O. 1990, c. E-2, sect. 257.12(1)(b) [para. 192]; sect. 257.30(1) [para. 107]; sect. 257.30(6); sect. 257.31 [para. 108]; sect. 257.40(1) [para. 114]; sect. 257.50 [para. 109]; sect. 257.52 [para. 110].

Separate Schools Act, S.U.C. 1863, c. 5, sect. 7 [para. 52].

Authors and Works Noticed:

Canada, Royal Commission of Inquiry into Civil Rights, Report No. 1 (McRuer Report) (1968), vol. 1, pp. 351, 353 [para. 194].

Dussault, René, and Borgeat, Louis, Ad­ministrative Law, A Treatise (2nd Ed. 1985), vol. 1, pp. 446, 447 [para. 212].

Hogg, Peter W., Constitutional Law of Canada (1992 Looseleaf Ed.) (1997 Update, Release 2), pp. 54-9 [para. 112]; 352 [para. 204].

Keyes, John Mark, Executive Legislation: Delegated Law Making by the Executive Branch (1992), p. 44 [para. 205].

Laskin, Bora, Administrative Law - War - Subdelegation of Legislative Power Without Express Statutory Authorization (1943), 21 Can. Bar Rev. 141, pp. 145, 147 [para. 182].

Laskin, Bora, Canadian Constitutional Law (5th Ed. 1986), p. 42 [para. 179].

McRuer Report - see Canada, Royal Commission of Inquiry into Civil Rights, Report No. 1 (1968).

Ontario, Committee on Taxation Report (1967), pp. 406, 408 [para. 36].

Ontario, Ministry of Education Report, New Foundations for Education Finance: Building on Progress (1995), p. 6 [para. 36].

Ontario, Ministry of Education Report, Toward Education Finance Reform: A Description of the Present Education Funding Model and the Terms for Reform and the 1992 General Legislative Grants Regulations (1992), p. 9 [para. 36].

Ontario, Report of the Commission on the Financing of Elementary and Secondary Education (1985), pp. 44 [paras. 36, 37]; 45, 48 [para. 37]; 49 [paras. 36, 37]; 52 [para. 36].

Ontario, Report of the Education Sub-Panel (1996), pp. 2, 7 [para. 36].

Ontario, Report of the Ontario Fair Tax Commission (1993), pp. 677, 681, 682, 683 [para. 36].

Ontario, Report of the Royal Commission on Education (1950), pp. 712, 723 [para. 36].

Ontario, Report of the Royal Commission on Learning - A Short Version (1994), p. 38 [para. 36].

Ontario, Report of the Working Group on Education Finance Reform (1996), gen­erally [para. 36].

Counsel:

Paul Cavalluzzo, Fay C. Faraday and Karen Schucher, for the applicants;

Janet E. Minor, Michel Y. Hélie and Robert E. Charney, for the respondent;

Peter D. Lauwers and John C. Murray, for the intervenor, Ontario Catholic School Trustees' Association;

Paul S. Rouleau, John C. Murray and M. Sean Gaudet, for the intervenors, Asso­ciation Franco-Ontarienne des conseils scolaires catholiques and Association des conseillers (ères) des écoles publiques de l'Ontario;

Brian A. Kelsey, Q.C., and John P. Bell, for Ontario Public School Boards' Asso­ciation, and the Toronto District School Board;

Michael A. Hines, for Ontario Public School Boards' Associ­ation, Upper Grand District School Board, Elizabeth Sandals and Joleene Kemp and for the intervenor, Annie Kidder;

Maurice A. Green, for Ontario Secondary School Teachers' Federation and David Edwards and Robert Churchill;

Elizabeth J. Shilton, for Federation of Women Teachers' Associations of Ontario and Ontario Public School Teachers' Federation.

This application was heard on June 17, 18, 19, 22, 23, 24 and 26, 1998, by Cumming, J., of the Ontario Court (General Division), who delivered the following decision on July 22, 1998.