Comité paritaire de l'industrie de la chemise v. Potash et Sélection Milton, (1994) 168 N.R. 241 (SCC)

• Judge: Cory, McLachlin, Iacobucci and Major, JJ.
• Court: Supreme Court (Canada)
• Case Date: January 27, 1994
• Jurisdiction: Canada (Federal)
• Citations: (1994), 168 N.R. 241 (SCC);91 CCC (3d) 315;1994 CanLII 92 (SCC);115 DLR (4th) 702;4 CCEL (2d) 214;JE 94-1121;AZ-94111068;168 NR 241;[1994] SCJ No 7 (QL);21 CRR (2d) 193;61 QAC 241;[1994] 2 SCR 406

Shirt Ind. Parity Com. v. Potash (1994), 168 N.R. 241 (SCC)

MLB headnote and full text

[French language version follows English language version]

[La version française vient à la suite de la version anglaise]

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Le Comité paritaire de l'industrie de la chemise et Le Procureur général du Québec (appelants) v. Jonathan Potash (intimé)

Le Comité paritaire de l'industrie de la chemise et Le Procureur général du Québec (appelants) v. Sélection Milton (intimée), Le Procureur général de l'Ontario, Le Procureur général de la Saskatchewan, Le Procureur général de l'Alberta et L'Association des comités paritaires du Québec Inc. (intervenants)

(23083)

Indexed As: Comité paritaire de l'industrie de la chemise v. Potash et Sélection Milton

Supreme Court of Canada

Lamer, C.J.C., La Forest,

L'Heureux-Dubé, Sopinka, Gonthier,

Cory, McLachlin, Iacobucci

and Major, JJ.

January 27, 1994.

Summary:

Following a complaint, the Comité pari­taire de l'industrie de la chemise (the shirt industry parity committee) was informed that shirts bearing the brand Sélection Milton had been sewed by employees who were not paid. Inspectors from the Comité paritaire went to Sélection Milton's premises on two occasions to obtain a list of its shirt sewing subcontracts, see its pay register and visit its workshop in order to meet with the employees. Sélection Milton and its repre­sentative Jonathan Potash refused to give the inspectors the information and access they sought on the ground that they had no search warrant. Sélection Milton and Potash were charged under s. 33 of the Act respecting Collective Agreement Decrees (Que.) for illegally failing to comply with the inspec­tors' requests. The accused replied that the powers given to inspectors under the Act constituted an unreasonable search and seizure under s. 8 of the Canadian Charter of Rights and Freedoms and s. 24.1 of the Quebec Charter of Human Rights and Free­doms.

The Court of Québec (Dansereau, J.), in a judgment summarized at J.E. 89-227; D.T.E. 89T-80, delivered a guilty verdict. The accused appealed.

The Quebec Superior Court (Viau, J.), in a judgment reported [1989] R.J.Q. 1575, dismissed the appeal. The accused appealed again.

The Quebec Court of Appeal, in a judg­ment reported [1992] R.J.Q. 1743; 49 Q.A.C. 81; 10 C.R.R.(2d) 335; 75 C.C.C.(3d) 367, allowed the appeal. The Comité paritaire appealed.

The Supreme Court of Canada allowed the appeal.

Civil Rights - Topic 1217

Security of the person - Lawful or reason­able search - What constitutes unreason­able search and seizure - The Act respecting Collective Agreement Decrees (Que.), authorized inspectors to "as of right and at any reasonable time, examine the registration system, the compulsory register and the pay-list of any employer, take copies or extracts therefrom, verify as regards any employer and any employee the rate of wage, duration of work, apprenticeship system and observance of the other provisions of the decree [and] require ... all information deemed neces­sary." - The Supreme Court of Canada held that these powers did not constitute an unreasonable "search" and "seizure" under s. 8 of the Canadian Char­ter of Rights and Freedoms and s. 24.1 of the Quebec Charter of Human Rights and Freedoms. - See paragraphs 8 to 20, 60 to 100.

Droits et libertés - Cote 1217

Sécurité - Perquisition légale ou raison­nable - Fouille, perquisition et saisie abusives, en quoi consistent - [Voir Civil Rights - Topic 1217 ].

Civil Rights - Topic 1219

Security of the person - Lawful or reason­able search - Search defined - The Act respecting Collective Agreement Decrees (Que.), authorized inspectors to "as of right and at any reasonable time, examine the registration system, the compulsory register and the pay-list of any employer, take copies or extracts therefrom, verify as regards any employer and any employee the rate of wage, duration of work, apprenticeship system and observance of the other provisions of the decree [and] require ... all information deemed neces­sary." - The Supreme Court of Canada held, per La Forest, J., that the power to make copies of documents constituted a "seizure" and the other inspection powers constituted a "search" within the meaning of s. 8 of the Canadian Charter of Rights and Freedoms - See paragraphs 4 to 7.

Civil Rights - Topic 1219

Security of the person - Lawful or reason­able search - Search defined - The Act respecting Collective Agreement Decrees (Que.), authorized inspectors to "as of right and at any reasonable time, examine the registration system, the compulsory register and the pay-list of any employer, take copies or extracts therefrom, verify as regards any employer and any employee the rate of wage, duration of work, apprenticeship system and observance of the other provisions of the decree [and] require ... all information deemed neces­sary." - The Supreme Court of Canada held, per L'Heureux-Dubé, J., that the right of access by inspectors to work premises, although an administrative inspec­tion, was comparable to a "search" within the meaning of s. 8 of the Canadian Char­ter of Rights and Freedoms - See para­graphs 45 to 59.

Droits et libertés - Cote 1219

Sécurité - Perquisition légale ou raison­nable - Définition de perquisition - [Voir Civil Rights - Topic 1219 ].

Civil Rights - Topic 1220

Security of the person - Lawful or reason­able search - Seizure defined - The Act respecting Collective Agreement Decrees (Que.), authorized inspectors to "as of right and at any reasonable time, examine the registration system, the compulsory register and the pay-list of any employer, take copies or extracts therefrom, verify as regards any employer and any employee the rate of wage, duration of work, apprenticeship system and observance of the other provisions of the decree [and] require ... all information deemed neces­sary." - The Supreme Court of Canada held, per La Forest, J., that the power to make copies of documents constituted a "seizure" and the other inspection powers constituted a "search" within the meaning of s. 8 of the Canadian Charter of Rights and Freedoms - See paragraphs 4 to 7.

Civil Rights - Topic 1220

Security of the person - Lawful or reason­able search - Seizure defined - The Act respecting Collective Agreement Decrees (Que.), authorized inspectors to "as of right and at any reasonable time, examine the registration system, the compulsory register and the pay-list of any employer, take copies or extracts therefrom, verify as regards any employer and any employee the rate of wage, duration of work, apprenticeship system and observance of the other provisions of the decree [and] require ... all information deemed neces­sary." - The Supreme Court of Canada held, per L'Heureux-Dubé, J., that the right to obtain information from the employer and employees, and the right to examine documents and make copies of them, constituted a "seizure" within the meaning of s. 8 of the Canadian Charter of Rights and Freedoms - See paragraphs 45 to 59.

Droits et libertés - Cote 1220

Sécurité - Perquisition légale ou raison­nable - Définition de saisie - [Voir Civil Rights - Topic 1220 ].

Cases Noticed:

R. v. Dyment, [1988] 2 S.C.R. 417; 89 N.R. 249; 73 Nfld. & P.E.I.R. 13; 229 A.P.R. 13; 45 C.C.C.(3d) 244; 10 M.V.R.(2d) 1; 66 C.R.(3d) 348; 55 D.L.R.(4th) 503, consd. [para. 50].

Thomson Newspapers Ltd. v. Director of Investigation and Research, Combines Investigation Act et al., [1990] 1 S.C.R. 425; 106 N.R. 161; 39 O.A.C. 161; 54 C.C.C.(3d) 417; 76 C.R.(3d) 129; 67 D.L.R.(4th) 161; 29 C.P.R.(3d) 97; 47 C.R.R. 1, refd to. [para. 4].

R. v. Colarusso, [1994] 1 S.C.R. 20; 162 N.R. 321; 69 O.A.C. 81, refd to. [para. 4].

R. v. McKinlay Transport Ltd. and C.T. Transport Inc., [1990] 1 S.C.R. 627; 106 N.R. 385; 39 O.A.C. 385, refd to. [para. 4].

Southam Inc. v. Hunter, [1984] 2 S.C.R. 145; 55 N.R. 241; 55 A.R. 291; 9 C.R.R. 355; 14 C.C.C.(3d) 97; 41 C.R.(3d) 97; [1984] 6 W.W.R. 577; 33 Alta. L.R.(2d) 193; 27 B.L.R. 297; 84 D.T.C. 6467; 2 C.P.R.(3d) 1; 11 D.L.R.(4th) 641, consd. [para. 7].

Commission de l'Industrie de la Construc­tion v. Commission de Transport de la Communauté Urbaine de Montréal, [1986] 2 S.C.R. 327; 70 N.R. 290; 3 Q.A.C. 104, refd to. [para. 16].

Quebec (Construction Industry Commis­sion) v. M.U.C.T.C. - see Commission de l'Industrie de la Construction v. Com­mission de Transport de la Communauté Urbaine de Montréal.

Comité paritaire de l'industrie de la che­mise v. Potash et Sélection Milton, J.E. 89-227; D.T.E. 89T-80 (C.Q.), affd. [1989] R.J.Q. 1575 (S.C.), revd. [1992] R.J.Q. 1743; 49 Q.A.C. 81; 75 C.C.C.(3d) 367; 10 C.R.R.(2d) 335 (C.A.), refd to. [para. 26].

Ontario Chrysler (1977) Ltd. v. Director of Consumer Protection (Ont.) et al. (1990), 38 O.A.C. 64; 67 D.L.R.(4th) 148 (C.A.), refd to. [para. 37].

Johnson v. Ontario (Minister of Revenue) (1990), 41 O.A.C. 129; 75 O.R.(2d) 558 (C.A.), consd. [para. 37].

Comité paritaire de l'industrie du meuble v. Métal par dimension Ltée, [1989] R.J.Q. 1442; 34 Q.A.C. 103 (C.A.), refd to. [para. 38].

Chaussure Brown's Inc. et al. v. Québec (Procureur général), [1988] 2 S.C.R. 712; 90 N.R. 84; 19 Q.A.C. 69, refd to. [para. 42].

Ford v. Quebec (Procureur général) - see Chaussure Brown's Inc. et al. v. Québec (Procureur général).

R. v. Hufsky, [1988] 1 S.C.R. 621; 84 N.R. 365; 27 O.A.C. 103; 40 C.C.C.(3d) 398; 63 C.R.(3d) 14; 4 M.V.R.(2d) 170; 32 C.R.R. 193, refd to. [para. 51].

R. v. Ladouceur, [1990] 1 S.C.R. 1257; 108 N.R. 171; 40 O.A.C. 1; 77 C.R.(3d) 110; 56 C.C.C.(3d) 20; 21 M.V.R.(2d) 165, refd to. [para. 51].

R. v. Plant (R.S.), [1993] 3 S.C.R. 281; 157 N.R. 321; 145 A.R. 104; 55 W.A.C. 104, refd to. [para. 51].

R. v. Dersch (W.W.), [1993] 3 S.C.R. 768; 158 N.R. 375; 33 B.C.A.C. 269; 54 W.A.C. 269, refd to. [para. 51].

Stelco Inc. et al. v. Canada (Attorney General), [1990] 1 S.C.R. 617; 108 N.R. 161, refd to. [para. 53].

Belgoma Transportation Ltd. v. Director of Employment Standards (Ont.) (1985), 10 O.A.C. 11; 20 D.L.R.(4th) 156 (C.A.), refd to. [para. 54].

R. v. Quesnel (1985), 12 O.A.C. 165; 24 C.C.C.(3d) 78 (C.A.), leave to appeal refused [1986] 1 S.C.R. xiii; 16 O.A.C. 80, refd to. [para. 54].

Miller (Bertram S.) Ltd. v. Canada, [1986] 3 F.C. 291; 69 N.R. 1 (F.C.A.), refd to. [para. 54].

Chabot and Ozubko v. Manitoba Horse Racing Commission, [1987] 1 W.W.R. 149; 43 Man.R.(2d) 253 (C.A.), leave to appeal refused [1987] 1 S.C.R. xi; 50 Man.R.(2d) 79, refd to. [para. 54].

R. v. Bichel, [1986] 5 W.W.R. 261 (B.C.C.A.), refd to. [para. 54].

Southam Inc. v. Hunter (1982), 136 D.L.R.(3d) 133 (Q.B.), revd. (1983), 42 A.R. 93; 147 D.L.R.(3d) 420 (C.A.), refd to. [para. 56].

R. v. J.M.G. (1986), 17 O.A.C. 107; 29 C.C.C.(3d) 455 (C.A.), leave to appeal refused [1987] 1 S.C.R. ix; 21 O.A.C. 239, refd to. [para. 57].

Québec (Sous-ministre du Revenu) et autres v. 143471 Canada Inc. et autres (1994), 167 N.R. 321; 61 Q.A.C. 81 (S.C.C.), refd to. [para. 66].

143471 Canada Inc. v. Québec (Procureur général) - see Québec (Sous-ministre du Revenu) et autres v. 143471 Canada Inc. et autres.

Edmonton Journal v. Alberta (Attorney General), [1989] 2 S.C.R. 1326; 102 N.R. 321; 103 A.R. 321; [1990] 1 W.W.R. 577; 64 D.L.R.(4th) 577; 71 Alta. L.R.(2d) 273; 45 C.R.R. 1, refd to. [para. 70].

Royal College of Dental Surgeons (Ont.) et al. v. Rocket and Price, [1990] 2 S.C.R. 232; 111 N.R. 161; 40 O.A.C. 241, refd to. [para. 70].

R. v. Keegstra, [1990] 3 S.C.R. 697; 117 N.R. 1; 114 A.R. 81; 1 C.R.(4th) 129; 77 Alta. L.R.(2d) 193; [1991] 2 W.W.R. 1; 61 C.C.C.(3d) 1; 3 C.R.R.(2d) 193, refd to. [para. 70].

Committee for the Commonwealth of Canada et al. v. Canada, [1991] 1 S.C.R. 139; 120 N.R. 241, refd to. [para. 70].

R. v. Seaboyer and Gayme, [1991] 2 S.C.R. 577; 128 N.R. 81; 48 O.A.C. 81; 66 C.C.C.(3d) 321; 7 C.R.(4th) 117, refd to. [para. 70].

R. v. S.S. - see R. v. Seaboyer and Gayme.

Young v. Young et al., [1993] 4 S.C.R. 3; 160 N.R. 1; 34 B.C.A.C. 161; 56 W.A.C. 161, refd to. [para. 70].

R. v. Wholesale Travel Group Inc. and Chedore, [1991] 3 S.C.R. 154; 130 N.R. 1; 49 O.A.C. 161; 67 C.C.C.(3d) 193; 8 C.R.(4th) 145, consd. [para. 70].

Katz v. United States (1967), 389 U.S. 347 (Sup. Ct.), refd to. [para. 77].

Camara v. Municipal Court of San Francisco (1967), 387 U.S. 523 (Sup. Ct.), refd to. [para. 77].

See v. Seattle (City) (1967), 387 U.S. 541 (Sup. Ct.), refd to. [para. 77].

Colonnade Catering Corp. v. United States (1970), 397 U.S. 72 (Sup. Ct.), refd to. [para. 79].

United States v. Biswell (1972), 406 U.S. 311 (Sup. Ct.), refd to. [para. 79].

Marshall v. Barlow's Inc. (1978), 436 U.S. 307 (Sup. Ct.), refd to. [para. 79].

Donovan v. Dewey (1981), 452 U.S. 594 (Sup. Ct.), refd to. [para. 79].

New York v. Burger (1987), 482 U.S. 691 (Sup. Ct.), consd. [para. 81].

Comité paritaire de l'industrie de l'impri­merie de Montréal et du district v. Dominion Blank Book Co., [1944] S.C.R. 213, refd to. [para. 91].

Comité paritaire de l'industrie de l'automo­bile de Montréal et du district v. Laiterie Perrette Ltée, [1988] R.J.Q. 76; 21 Q.A.C. 124 (C.A.), refd to. [para. 91].

Singer (Allan) Ltd. v. Québec (Procureur général) et al., [1988] 2 S.C.R. 790; 90 N.R. 48; 19 Q.A.C. 33, refd to. [para. 100].

Devine v. Québec (Procureur général) - see Singer (Allan) Ltd. v. Québec (Procureur général) et al.

Statutes Noticed:

Canadian Charter of Rights and Freedoms, 1982/Charte canadienne des droits et libertés, 1982, sect. 1 [para. 26]; sect. 8 [para. 2]; sect. 33 [para. 41].

Charter of Human Rights and Free­doms/Charte des droits et libertés de la personne, R.S.Q. 1977, c. C-12, sect. 8 [para. 25]; sect. 9.1 [para. 100]; sect. 24.1 [para. 2].

Chemise pour hommes et garçons, Décret sur l'industrie de la - voir Décrets de convention collective, Loi sur les, Règlements (Qué.).

Code of Penal Procedure/Code de procé­dure pénale, R.S.Q. 1977, c. C-25.1, sect. 95 et seq. [para. 32].

Collective Agreement Decrees, Act respecting/Décrets de convention collec­tive, Loi sur les, R.S.Q. 1977, c. D-2, sect. 1(f), sect. 1(g), sect. 2, sect. 11 [para. 26]; sect. 14 [para. 23]; sect. 16 [para. 26]; sect. 22, sect. 22(a) [para. 14]; sect. 22(e) [para. 2]; sect. 24 [para. 26]; sect. 33 [para. 24].

Collective Agreement Decrees, Act re­specting, Regulations (Que.), Decree respecting Women's Clothing Indus­try/Décrets de convention collec­tive, Loi sur les, Règlements (Qué.), Décret sur l'industrie de la confection pour dames, R.R.Q. 1981, c. D-2, rule 26, sect. 2.02, sect. 2.04(8), sect. 2.04(9), sect. 2.04(10) [para. 93].

Collective Agreement Decrees, Act respecting, Regulations (Que.), Decree respecting the Men's and Boy's Shirt Industry/Décrets de convention collec­tive, Loi sur les, Règlements (Qué.), Décret sur l'industrie de la chemise pour hommes et garçons, R.R.Q. 1981, c. D-2, rule 11, generally [para. 11]; sect. 1.01 [para. 94]; sect. 1.02 [para. 16]; sect. 6.01(i), sect. 6.01(j), sect. 6.01(k) [para. 94].

Combines Investigation Act/Enquêtes sur les coalitions, Loi relative aux, R.S.C. 1970, c. C-23, generally [para. 70]; sect. 10(1), sect. 10(3) [para. 68].

Competition Act - see Combines Investi­gation Act.

Concurrence, Loi sur la - see Enquêtes sur les coalitions, Loi relative aux.

Confection pour dames, Décret sur l'industrie de la - see Décrets de con­vention collective, Loi sur les, Règle­ments (Qué.).

Constitution of the United States, Fourth Amendment/Constitution des Etats-Unis, Quatrième amendement [para. 10].

Income Tax Act/Impôt sur le revenu, Loi de l', R.S.C. 1985 (5th Supp.), c. 1, generally [para. 11]; sect. 230 [para. 64].

Income Tax Act/Impôt sur le revenu, Loi de l', R.S.C. 1952, c. 148, sect. 231(3) [para. 97].

Labour Code/Code du travail, R.S.Q. 1977, c. C-27, generally [para. 11].

Labour Standards Act/Normes du travail, Loi sur les, R.S.Q. 1977, c. N-1.1, generally [para. 11].

Labour Standards Act, Regulations (Que.), Regulation respecting a Registration System or the Keeping of a Regis­ter/Normes d'emploi, Loi sur les, Règlements (Qué.), Règlement sur la tenue d'un système d'enregistrement ou d'un registre, R.R.Q. 1981, c. N-1.1, rule 6, sect. 1 [para. 64].

Men's and Boy's Shirt Industry, Decree respecting - see Collective Agreement Decrees, Act respecting, Regulations (Que.).

Ministère du Revenu, Act respect­ing/Mi­nistère du Revenu, Loi sur le, R.S.Q. 1977, c. M-31, generally [para. 11]; sect. 34 [para. 64].

Occupational Health and Safety, Act respecting/Santé et sécurité du travail, Loi sur la, R.S.Q. 1977, c. S-2.1, gen­erally [para. 11].

Registration System or the Keeping of a Register, Regulation respecting a - see Labour Standards Act, Regulations (Que.).

Summary Convictions Act/Poursuites sommaires, Loi sur les, R.S.Q. 1977, c. P-15, sect. 8 [para. 32].

Tenue d'un système d'enregistrement ou d'un registre, Règlement sur la - see Normes du travail, Loi sur les, Règle­ments (Qué.).

Unemployment Insurance Act/Assurance-chômage, Loi sur l', R.S.C. 1985, c. U-1, generally [para. 11]; sect. 58 [para. 64].

Various Legislation respecting Labour Relations, Act to amend/Diverses dispo­sitions législatives en matière de rela­tions de travail, Loi modifiant, S.Q. 1984, c. 45, sect. 35 [para. 42].

Women's Clothing Industry, Decree respecting - see Collective Agreement Decrees, Act respecting, Regulations (Que.).

Authors and Works Noticed:

Angers, Lucie, A la recherche d'une pro­tection efficace contre les inspections abusives de l'Etat: la Charte québécoise, la Charte canadienne et le Bill of Rights américain (1986), 27 C. de D. 723, pp. 727 to 728 [para. 5]; 730, 731 [para. 100].

Maybank, Robert C., Constitutional Requirements for Administrative War­rants in Canada and the United States: Opposite Trends? (1989), 39 U.T.L.J. 55, p. 68 [para. 81].

Counsel:

Michelle LeFrançois, for the appellant, Comité paritaire de l'industrie de la chemise;

Monique Rousseau and Gilles Laporte, for the appellant, Attorney General of Que­bec;

Jean Dagenais, Avrum P. Orenstein and Susan Orenstein Little, for the respon­dents, Jonathan Potash and Sélection Milton;

Leah Price, for the intervener, Attorney Gen­eral for Ontario;

Thomson Irvine, for the intervener, Attor­ney Gen­eral for Saskatchewan;

Robert C. Maybank, for the intervener, Attor­ney General for Alberta;

François Beauvais, Diane Fortier, for the intervener, Association des comités pari­taires du Québec Inc.

Solicitors of Record:

Dubuc, LeFrançois & Associés, St-Laurent, Quebec; Gilles Laporte and Monique Rousseau, Ste-Foy, Quebec, for the appellants;

Orenstein, Ruby, Orenstein, Montreal, Quebec, for the respondents;

George Thomson, Toronto, Ontario, for the intervener, Attorney General for Ontario;

W. Brent Cotter, Regina, Saskatchewan, for the intervener, Attorney General for Saskatchewan;

Robert C. Maybank, Edmonton, Alberta, for the intervener, Attorney General for Alberta;

Allaire, Fortier & Assoc., Montreal, Que­bec, for the intervener, Association des co­mités paritaires du Québec Inc.

This appeal was heard on January 27, 1994, by Lamer, C.J.C., La Forest, L'Heureux-Dubé, Sopinka, Gonthier, Cory, McLachlin, Iacobucci and Major, JJ., of the Supreme Court of Canada.

The judgment of the Supreme Court was delivered from the bench on January 27, 1994 and the following reasons were filed in both official languages on June 23, 1994:

La Forest, J. (Lamer, C.J.C., Sopinka, Cory, McLachlin and Iacobucci, JJ., concurring) - see paragraphs 1 to 20;

L'Heureux-Dubé, J. (Sopinka, Gonthier, McLachlin and Major, JJ., concurring) - see paragraphs 21 to 105.