Desrochers v. Canada (Department of Industry)

Desrochers v. Canada (Department of Industry)
Court (s) Database
Federal Court of Appeal Decisions
Date
2006-11-17
Neutral citation
2006 FCA 374
File numbers
A-451-05
Notes
Reported Decision
Decision Content
Date: 20061117
Docket: A-451-05
Citation: 2006 FCA 374
CORAM: RICHARD C.J.
LÉTOURNEAU J.A.
NADON J.A.
BETWEEN:
RAYMOND DESROCHERS and
CORPORATION DE DÉVELOPPEMENT
ÉCONOMIQUE COMMUNAUTAIRE CALDECH
Appellants
and
DEPARTMENT OF INDUSTRY OF CANADA,
GOVERNMENT OF CANADA and
ATTORNEY GENERAL OF CANADA
Respondents
and
THE COMMISSIONER OF OFFICIAL LANGUAGES OF CANADA
Intervener
Hearing held at Ottawa, Ontario, October 4, 2006.
Judgment delivered at Ottawa, Ontario, November 17, 2006.
REASONS FOR JUDGMENT: LÉTOURNEAU J.A.
CONCURRING: RICHARD C.J.
NADON J.A.
Date: 20061117
Docket: A-451-05
Citation: 2006 FCA 374
CORAM: RICHARD C.J.
LÉTOURNEAU J.A.
NADON J.A.
BETWEEN:
RAYMOND DESROCHERS and
CORPORATION DE DÉVELOPPEMENT
ÉCONOMIQUE COMMUNAUTAIRE CALDECH
Appellants
and
DEPARTMENT OF INDUSTRY OF CANADA,
GOVERNMENT OF CANADA and
ATTORNEY GENERAL OF CANADA
Respondents
and
THE COMMISSIONER OF OFFICIAL LANGUAGES OF CANADA
Intervener
REASONS FOR JUDGMENT
LÉTOURNEAU J.A.
POINTS IN ISSUE AND RELEVANT STATUTORY PROVISIONS
[1] This is an appeal from a decision of Mr. Justice Harrington of the Federal Court (the judge) dismissing the appellants’ application for relief made pursuant to subsection 77(1) of the Official Languages Act, R.S.C. 1985, c. 31 (4th Supp.), as amended (the OLA). This application was made on October 27, 2004.
[2] The points at issue are easier to identify than to resolve. The appellants have succinctly formulated them and I will just quote the relevant portion of their Amended Memorandum of Fact and Law:
[translation]
(a) In matters of community economic development in the Huronia region, are the respondents in breach of their obligations to provide services in French of equal quality to the services provided in English:
(i) under Part IV of the OLA?
(ii) under the constitutional principle of protection of and respect for minorities?
(b) Are the respondents in breach of their obligations to enhance the vitality of the Francophone community in the Huronia region under Part VII of the OLA?
(c) What is the fair and appropriate remedy in the circumstances?
(d) Should the Court award the appellants their costs in the court below, irrespective of the outcome of the case, under subsection 81(2) of the OLA?
[3] To facilitate the reader’s perusal of these reasons, I include a table of contents that identifies and locates the topics addressed and analysed herein.
Table of Contents
Points at issue para. 1
Facts and proceedings para. 5
Decision of the Federal Court judge para. 17
Relief sought on appeal para. 22
Responsibility of the government of Canada for the program under the DIA para. 25
Rights and obligations in Part IV of the OLA para. 30
Was North Simcoe required to provide the services in French? para. 42
OLA subsection 77(1) recourse for alleged breaches of Part VII para. 73
Date at which the alleged breaches of the OLA should be assessed para. 75
The appropriate relief in the circumstances para. 78
Appellants’ entitlement to costs in relation to the Federal Court proceeding para. 80
Conclusion para. 84
[4] Before relating the facts and proceedings in this case, I quote the relevant provisions of the OLA and the Department of Industry Act, S.C. 1995, c. 1 (the DIA):
An Act respecting the status and use of the official languages of Canada
Preamble
WHEREAS the Constitution of Canada provides that English and French are the official languages of Canada and have equality of status and equal rights and privileges as to their use in all institutions of the Parliament and government of Canada;
. . .
AND WHEREAS the Constitution of Canada also provides for guarantees relating to the right of any member of the public to communicate with, and to receive available services from, any institution of the Parliament or government of Canada in either official language;
AND WHEREAS officers and employees of institutions of the Parliament or government of Canada should have equal opportunities to use the official language of their choice while working together in pursuing the goals of those institutions;
. . .
AND WHEREAS the Government of Canada is committed to enhancing the vitality and supporting the development of English and French linguistic minority communities, as an integral part of the two official language communities of Canada, and to fostering full recognition and use of English and French in Canadian society;
. . .
AND WHEREAS the Government of Canada recognizes the importance of preserving and enhancing the use of languages other than English and French while strengthening the status and use of the official languages;
Purpose
2. The purpose of this Act is to
(a) ensure respect for English and French as the official languages of Canada and ensure equality of status and equal rights and privileges as to their use in all federal institutions, in particular with respect to their use in parliamentary proceedings, in legislative and other instruments, in the administration of justice, in communicating with or providing services to the public and in carrying out the work of federal institutions;
(b) support the development of English and French linguistic minority communities and generally advance the equality of status and use of the English and French languages within Canadian society; and
(c) set out the powers, duties and functions of federal institutions with respect to the official languages of Canada.
Definitions
3. (1) In this Act,
“federal institution”
« institutions fédérales »
“federal institution” includes any of the following institutions of the Parliament or government of Canada:
(a) the Senate,
(b) the House of Commons,
(c) the Library of Parliament,
(c.1) the office of the Senate Ethics Officer and the office of the Ethics Commissioner,
(d) any federal court,
(e) any board, commission or council, or other body or office, established to perform a governmental function by or pursuant to an Act of Parliament or by or under the authority of the Governor in Council,
(f) a department of the Government of Canada,
(g) a Crown corporation established by or pursuant to an Act of Parliament, and
(h) any other body that is specified by an Act of Parliament to be an agent of Her Majesty in right of Canada or to be subject to the direction of the Governor in Council or a minister of the Crown,
but does not include
(i) any institution of the Council or government of the Northwest Territories or of the Legislative Assembly or government of Yukon or Nunavut, or
(j) any Indian band, band council or other body established to perform a governmental function in relation to an Indian band or other group of aboriginal people;
PART IV
COMMUNICATIONS WITH AND SERVICES TO THE PUBLIC
Communications and Services
Rights relating to language of communication
21. Any member of the public in Canada has the right to communicate with and to receive available services from federal institutions in accordance with this Part.
Where communications and services must be in both official languages
22. Every federal institution has the duty to ensure that any member of the public can communicate with and obtain available services from its head or central office in either official language, and has the same duty with respect to any of its other offices or facilities
(a) within the National Capital Region; or
(b) in Canada or elsewhere, where there is significant demand for communications with and services from that office or facility in that language.
. . .
Services Provided on behalf of Federal Institutions
Where services provided on behalf of federal institutions
25. Every federal institution has the duty to ensure that, where services are provided or made available by another person or organization on its behalf, any member of the public in Canada or elsewhere can communicate with and obtain those services from that person or organization in either official language in any case where those services, if provided by the institution, would be required under this Part to be provided in either official language.
. . .
General
Obligations relating to communications and services
27. Wherever in this Part there is a duty in respect of communications and services in both official languages, the duty applies in respect of oral and written communications and in respect of any documents or activities that relate to those communications or services.
Active offer
28. Every federal institution that is required under this Part to ensure that any member of the public can communicate with and obtain available services from an office or facility of that institution, or of another person or organization on behalf of that institution, in either official language shall ensure that appropriate measures are taken, including the provision of signs, notices and other information on services and the initiation of communication with the public, to make it known to members of the public that those services are available in either official language at the choice of any member of the public.
. . .
Relationship to Part V
31. In the event of any inconsistency between this Part and Part V, this Part prevails to the extent of the inconsistency.
PART VII
ADVANCEMENT OF ENGLISH AND FRENCH
Government policy
41. (1) The Government of Canada is committed to
(a) enhancing the vitality of the English and French linguistic minority communities in Canada and supporting and assisting their development; and
(b) fostering the full recognition and use of both English and French in Canadian society.
. . .
Specific mandate of Minister of Canadian Heritage
43. (1) The Minister of Canadian Heritage shall take such measures as that Minister considers appropriate to advance the equality of status and use of English and French in Canadian society and, without restricting the generality of the foregoing, may take measures to
(a) enhance the vitality of the English and French linguistic minority communities in Canada and support and assist their development;
(b) encourage and support the learning of English and French in Canada;
(c) foster an acceptance and appreciation of both English and French by members of the public;
(d) encourage and assist provincial governments to support the development of English and French linguistic minority communities generally and, in particular, to offer provincial and municipal services in both English and French and to provide opportunities for members of English or French linguistic minority communities to be educated in their own language;
(e) encourage and assist provincial governments to provide opportunities for everyone in Canada to learn both English and French;
(f) encourage and cooperate with the business community, labour organizations, voluntary organizations and other organizations or institutions to provide services in both English and French and to foster the recognition and use of those languages;
(g) encourage and assist organizations and institutions to project the bilingual character of Canada in their activities in Canada or elsewhere;
PART X
COURT REMEDY
Definition of “Court”
76. In this Part, “Court” means the Federal Court.
Application for remedy
77. (1) Any person who has made a complaint to the Commissioner in respect of a right or duty under sections 4 to 7, sections 10 to 13 or Part IV, V or VII, or in respect of section 91, may apply to the Court for a remedy under this Part.
. . .
Costs
81. (1) Subject to subsection (2), the costs of and incidental to all proceedings in the Court under this Act shall be in the discretion of the Court and shall follow the event unless the Court orders otherwise.
Idem
(2) Where the Court is of the opinion that an application under section 77 has raised an important new principle in relation to this Act, the Court shall order that costs be awarded to the applicant even if the applicant has not been successful in the result.
PART XI
GENERAL
Primacy of Parts I to V
82. (1) In the event of any inconsistency between the following Parts and any other Act of Parliament or regulation thereunder, the following Parts prevail to the extent of the inconsistency:
(a) Part I (Proceedings of Parliament);
(b) Part II (Legislative and other Instruments);
(c) Part III (Administration of Justice);
(d) Part IV (Communications with and Services to the Public); and
(e) Part V (Language of Work).
Loi concernant le statut et l’usage des langues officielles du Canada
Préambule
Attendu :
que la Constitution dispose que le français et l’anglais sont les langues officielles du Canada et qu’ils ont un statut et des droits et privilèges égaux quant à leur usage dans les institutions du Parlement et du gouvernement du Canada;
[…]
qu’elle prévoit en outre des garanties quant au droit du public à l’emploi de l’une ou l’autre de ces langues pour communiquer avec les institutions du Parlement et du gouvernement du Canada ou pour en recevoir les services;
qu’il convient que les agents des institutions du Parlement ou du gouvernement du Canada aient l’égale possibilité d’utiliser la langue officielle de leur choix dans la mise en œuvre commune des objectifs de celles-ci;
[…]
qu’il s’est engagé à favoriser l’épanouissement des minorités francophones et anglophones, au titre de leur appartenance aux deux collectivités de langue officielle, et à appuyer leur développement et à promouvoir la pleine reconnaissance et l’usage du français et de l’anglais dans la société canadienne;
[…]
qu’il reconnaît l’importance, parallèlement à l’affirmation du statut des langues officielles et à l’élargissement de leur usage, de maintenir et de valoriser l’usage des autres langues,
Objet
2. La présente loi a pour objet :
a) d’assurer le respect du français et de l’anglais à titre de langues officielles du Canada, leur égalité de statut et l’égalité de droits et privilèges quant à leur usage dans les institutions fédérales, notamment en ce qui touche les débats et travaux du Parlement, les actes législatifs et autres, l’administration de la justice, les communications avec le public et la prestation des services, ainsi que la mise en œuvre des objectifs de ces institutions;
b) d’appuyer le développement des minorités francophones et anglophones et, d’une façon générale, de favoriser, au sein de la société canadienne, la progression vers l’égalité de statut et d’usage du français et de l’anglais;
c) de préciser les pouvoirs et les obligations des institutions fédérales en matière de langues officielles.
Définitions
3. (1) Les définitions qui suivent s’appliquent à la présente loi.
« institutions fédérales »
“ federal institution”
« institutions fédérales » Les institutions du Parlement et du gouvernement du Canada, dont le Sénat, la Chambre des communes, la bibliothèque du Parlement, le bureau du conseiller sénatorial en éthique et le commissariat à l’éthique, les tribunaux fédéraux, tout organisme — bureau, commission, conseil, office ou autre — chargé de fonctions administratives sous le régime d’une loi fédérale ou en vertu des attributions du gouverneur en conseil, les ministères fédéraux, les sociétés d’État créées sous le régime d’une loi fédérale et tout autre organisme désigné par la loi à titre de mandataire de Sa Majesté du chef du Canada ou placé sous la tutelle du gouverneur en conseil ou d’un ministre fédéral. Ne sont pas visés les institutions du conseil ou de l’administration du Yukon et des Territoires du Nord-Ouest, celles de l’assemblée législative ou de l’administration du Nunavut, ni les organismes — bande indienne, conseil de bande ou autres — chargés de l’administration d’une bande indienne ou d’autres groupes de peuples autochtones.
PARTIE IV
COMMUNICATIONS AVEC LE PUBLIC ET PRESTATION DES SERVICES
Communications et services
Droits en matière de communication
21. Le public a, au Canada, le droit de communiquer avec les institutions fédérales et d’en recevoir les services conformément à la présente partie.
Langues des communications et services
22. Il incombe aux institutions fédérales de veiller à ce que le public puisse communiquer avec leur siège ou leur administration centrale, et en recevoir les services, dans l’une ou l’autre des langues officielles. Cette obligation vaut également pour leurs bureaux — auxquels sont assimilés, pour l’application de la présente partie, tous autres lieux où ces institutions offrent des services — situés soit dans la région de la capitale nationale, soit là où, au Canada comme à l’étranger, l’emploi de cette langue fait l’objet d’une demande importante.
[…]
Services fournis par des tiers
Fourniture dans les deux langues
25. Il incombe aux institutions fédérales de veiller à ce que, tant au Canada qu’à l’étranger, les services offerts au public par des tiers pour leur compte le soient, et à ce qu’il puisse communiquer avec ceux-ci, dans l’une ou l’autre des langues officielles dans le cas où, offrant elles-mêmes les services, elles seraient tenues, au titre de la présente partie, à une telle obligation.
[…]
Dispositions générales
Obligation : communications et services
27. L’obligation que la présente partie impose en matière de communications et services dans les deux langues officielles à cet égard vaut également, tant sur le plan de l’écrit que de l’oral, pour tout ce qui s’y rattache.
Offre active
28. Lorsqu’elles sont tenues, sous le régime de la présente partie, de veiller à ce que le public puisse communiquer avec leurs bureaux ou recevoir les services de ceux-ci ou de tiers pour leur compte, dans l’une ou l’autre langue officielle, il incombe aux institutions fédérales de veiller également à ce que les mesures voulues soient prises pour informer le public, notamment par entrée en communication avec lui ou encore par signalisation, avis ou documentation sur les services, que ceux-ci lui sont offerts dans l’une ou l’autre langue officielle, au choix.
[…]
Incompatibilité
31. Les dispositions de la présente partie l’emportent sur les dispositions incompatibles de la partie V.
PARTIE VII
PROMOTION DU FRANÇAIS ET DE L’ANGLAIS
Engagement
41. (1) Le gouvernement fédéral s’engage à favoriser l’épanouissement des minorités francophones et anglophones du Canada et à appuyer leur développement, ainsi qu’à promouvoir la pleine reconnaissance et l’usage du français et de l’anglais dans la société canadienne.
[…]
Mise en œuvre
43. (1) Le ministre du Patrimoine canadien prend les mesures qu’il estime indiquées pour favoriser la progression vers l’égalité de statut et d’usage du français et de l’anglais dans la société canadienne et, notamment, toute mesure :
a) de nature à favoriser l’épanouissement des minorités francophones et anglophones du Canada et à appuyer leur développement;
b) pour encourager et appuyer l’apprentissage du français et de l’anglais;
c) pour encourager le public à mieux accepter et apprécier le français et l’anglais;
d) pour encourager et aider les gouvernements provinciaux à favoriser le développement des minorités francophones et anglophones, et notamment à leur offrir des services provinciaux et municipaux en français et en anglais et à leur permettre de recevoir leur instruction dans leur propre langue;
e) pour encourager et aider ces gouvernements à donner à tous la possibilité d’apprendre le français et l’anglais;
f) pour encourager les entreprises, les organisations patronales et syndicales, les organismes bénévoles et autres à fournir leurs services en français et en anglais et à favoriser la reconnaissance et l’usage de ces deux langues, et pour collaborer avec eux à ces fins;
g) pour encourager et aider les organisations, associations ou autres organismes à refléter et promouvoir, au Canada et à l’étranger, le caractère bilingue du Canada;
PARTIE X
RECOURS JUDICIAIRE
Définition de « tribunal »
76. Le tribunal visé à la présente partie est la Cour fédérale.
Recours
77. (1) Quiconque a saisi le commissaire d’une plainte visant une obligation ou un droit prévus aux articles 4 à 7 et 10 à 13 ou aux parties IV, V, ou VII, ou fondée sur l’article 91, peut former un recours devant le tribunal sous le régime de la présente partie.
[…]
Frais et dépens
81. (1) Les frais et dépens sont laissés à l’appréciation du tribunal et suivent, sauf ordonnance contraire de celui-ci, le sort du principal.
Idem
(2) Cependant, dans les cas où il estime que l’objet du recours a soulevé un principe important et nouveau quant à la présente loi, le tribunal accorde les frais et dépens à l’auteur du recours, même s’il est débouté.
PARTIE XI
DISPOSITIONS GÉNÉRALES
Primauté sur les autres lois
82. (1) Les dispositions des parties qui suivent l’emportent sur les dispositions incompatibles de toute autre loi ou de tout règlement fédéraux :
a) partie I (Débats et travaux parlementaires);
b) partie II (Actes législatifs et autres);
c) partie III (Administration de la justice);
d) partie IV (Communications avec le public et prestation des services);
e) partie V (Langue de travail).
[Emphasis added]
An Act to establish the Department of Industry and to amend and repeal certain other Acts
. . .
PART I
POWERS, DUTIES AND FUNCTIONS OF THE MINISTER
Powers, duties and functions
4. (1) The powers, duties and functions of the Minister extend to and include all matters over which Parliament has jurisdiction, not by law assigned to any other department, board or agency of the Government of Canada, relating to
(a) industry and technology in Canada;
(b) trade and commerce in Canada;
(c) science in Canada;
(d) consumer affairs;
(e) corporations and corporate securities;
(f) competition and restraint of trade, including mergers and monopolies;
(g) bankruptcy and insolvency;
(h) patents, copyrights, trade-marks, industrial designs and integrated circuit topographies;
(i) standards of identity, packaging and performance in relation to consumer products and services, except in relation to the safety of consumer goods;
(j) legal metrology;
(k) telecommunications, except in relation to
(i) the planning and coordination of telecommunication services for departments, boards and agencies of the Government of Canada, and
(ii) broadcasting, other than in relation to spectrum management and the technical aspects of broadcasting;
(l) the development and utilization generally of communication undertakings, facilities, systems and services for Canada;
(m) investment;
(n) small businesses; and
(o) tourism.
Additional powers, duties and functions
(2) The powers, duties and functions of the Minister also extend to and include all matters over which Parliament has jurisdiction, not by law assigned to any other department, board or agency of the Government of Canada, relating to regional economic development in Ontario.
PART II
REGIONAL ECONOMIC DEVELOPMENT IN ONTARIO
Objectives in relation to regional development in Ontario and Quebec
8. The Minister shall exercise the powers and perform the duties and functions assigned by subsection 4(2) in a manner that will
(a) promote economic development in areas of Ontario where low incomes and slow economic growth are prevalent or where opportunities for productive employment are inadequate;
(b) emphasize long-term economic development and sustainable employment and income creation; and
(c) focus on small and medium-sized enterprises and the development and enhancement of entrepreneurial talent.
Duties in relation to regional development in Ontario
9. (1) In exercising the powers and performing the duties and functions assigned by subsection 4(2), the Minister shall, with respect to regional economic development in Ontario,
(a) in cooperation with other concerned ministers and boards and agencies of the Government of Canada, formulate and implement policies, plans and integrated federal approaches;
(b) coordinate the policies and programs of the Government of Canada;
(c) lead and coordinate the activities of the Government of Canada in the establishment of cooperative relationships with Ontario and with business, labour and other public and private bodies; and
(d) collect, gather, by survey or otherwise, compile, analyse, coordinate and disseminate information.
Coordination
(2) In exercising the powers and performing the same duties and functions, the Minister may
(a) provide and, where appropriate, coordinate services promoting regional economic development in Ontario including services to develop entrepreneurial talent, support local business associations, stimulate investment and support small- and medium-sized enterprises in that province or any part of that province; and
(b) initiate, recommend, coordinate, direct, promote and implement programs and projects in relation to regional economic development in Ontario.
Regulations
10. The Governor in Council may make regulations
(a) relating to policies, programs and projects referred to in section 9; and
(b) generally for carrying out the purposes and provisions of sections 8 and 9.
Loi constituant le ministère de l’Industrie et modifiant ou abrogeant certaines lois
[…]
PARTIE I
POUVOIRS ET FONCTIONS DU MINISTRE
Compétence générale
4. (1) Les pouvoirs et fonctions du ministre s’étendent de façon générale à tous les domaines de compétence du Parlement non attribués de droit à d’autres ministères ou organismes fédéraux et liés :
a) à l’industrie et à la technologie au Canada;
b) au commerce au Canada;
c) à la science au Canada;
d) à la consommation;
e) aux personnes morales et aux valeurs mobilières;
f) à la concurrence et aux pratiques commerciales restrictives, notamment les fusions et les monopoles;
g) à la faillite et à l’insolvabilité;
h) aux brevets, droits d’auteur, marques de commerce, dessins industriels et topographies de circuits intégrés;
i) aux normes d’identification, d’emballage et de rendement des produits et services destinés aux consommateurs, sauf en ce qui concerne la sécurité de ces produits;
j) à la métrologie légale;
k) aux télécommunications, sauf en ce qui a trait à la planification et à la coordination des services de télécommunication aux ministères et aux organismes fédéraux et à la radiodiffusion — à l’exception de la gestion du spectre et des aspects techniques de la radiodiffusion;
l) au développement et à l’utilisation, d’une façon générale, d’entreprises, d’installations, de systèmes et de services de communications pour le Canada;
m) aux investissements;
n) aux petites entreprises;
o) au tourisme.
Extension
(2) Ils s’étendent également, dans les mêmes conditions, aux domaines liés au développement économique régional en Ontario.
PARTIE II
DÉVELOPPEMENT ÉCONOMIQUE RÉGIONAL EN ONTARIO
Objectifs
8. Le ministre exerce les pouvoirs et fonctions que lui confère le paragraphe 4(2) de manière à :
a) promouvoir le développement économique des régions de l’Ontario à faibles revenus et faible croissance économique ou n’ayant pas suffisamment de possibilités d’emplois productifs;
b) mettre l’accent sur le développement économique à long terme et sur la création d’emplois et de revenus durables;
c) concentrer les efforts sur les petites et moyennes entreprises et sur la valorisation des capacités d’entreprise.
Attributions
9. (1) Dans le cadre de la compétence visée au paragraphe 4(2), le ministre, en ce qui touche le développement économique régional en Ontario :
a) en collaboration avec les autres ministres ou organismes fédéraux compétents, formule et met en œuvre des orientations, des projets et une conception intégrée de l’action fédérale;
b) coordonne les politiques et les programmes de mise en œuvre du gouvernement fédéral;
c) dirige et coordonne les activités du gouvernement fédéral en ce qui concerne l’établissement de relations de coopération avec l’Ontario, ainsi qu’avec les milieux d’affaires, les syndicats et autres organismes publics ou privés;
d) assure la collecte — notamment par sondage — la compilation, l’analyse, la coordination et la diffusion de l’information.
Coordination
(2) Dans le même cadre, le ministre peut :
a) fournir des services favorisant le développement économique régional de l’Ontario, notamment en vue de promouvoir les capacités d’entreprise, de stimuler les investissements et de soutenir les associations commerciales locales et les petites et moyennes entreprises dans l’ensemble ou dans une région précise de cette province, et, au besoin, coordonner leur prestation;
b) concevoir, recommander, coordonner, diriger, favoriser et mettre en œuvre des programmes et des opérations en ce qui touche le développement économique régional en Ontario.
Pouvoir réglementaire
10. Le gouverneur en conseil peut, par règlement :
a) régir les orientations, les programmes et les opérations mentionnés à l’article 9;
b) prendre toute autre mesure d’application des articles 8 et 9.
[Emphasis added]
FACTS AND PROCEEDINGS
[5] Under subsection 4(2) of the DIA, the powers, duties and functions of the Minister of Industry (the Minister) extend to and include all matters relating to regional economic development in Ontario. Essentially, these subsection 4(2) duties and functions consist in the promotion of economic development in areas of Ontario where incomes are low and economic growth is slow or where opportunities for productive employment are limited.
[6] Sections 9 and 10 of the DIA indicate that, in this regard, the Minister plays a role of defining and implementing policies and plans, and initiates, coordinates, directs and implements programs and projects in relation to economic development in Ontario. The Minister’s leadership and coordination role also extends to the federal government’s activities in its relations with the various stakeholders.
[7] Finally, the Minister may provide and, where appropriate, coordinate services promoting regional economic development in Ontario (paragraph 9(2)(a)).
[8] In this context, the Department of Industry (the Department) has established a Community Futures Program (the Program) the objective of which is to support economic development by helping communities promote and diversify themselves. Some 61 Community Futures Development Corporations (CFDCs) exist in Ontario. They provide strategic community economic planning services, support to small and medium-sized businesses and access to capital. These are autonomous organisations of the federal government, constituted as not-for-profit organisations under provincial law: see paragraph 6 of the respondents’ Memorandum of Fact and Law.
[9] In the rural areas, this program is managed by the Federal Economic Development
Initiative in Northern Ontario, or FedNor. It is funded pursuant to section 8 of the DIA.
[10] The residents of the northern part of Simcoe county are serviced by the North Simcoe CFDC (North Simcoe). This CFDC is “Anglo-dominated”, according to the appellants. Its mandate is to provide advice, information and funding to small businesses, and strategic planning for community economic development.
[11] North Simcoe has existed since 1986. It is small: five full-time employees, assisted by a number of volunteers who are either directors or members of the Francophone or Anglophone loans committee. The agency’s director is a unilingual Anglophone. The five employees, two of whom have French as their mother tongue, are fluent in English.
[12] The applicant, Mr. Raymond Desrochers, is the president of the co-appellant the Corporation de développement économique communautaire CALDECH (CALDECH). Created in 1995, CALDECH remained on the back-burner for three years until it obtained funding, including $22,000 from the Department’s program. Mr. Desrochers says it was created in order to establish and maintain the necessary institutions and programs to enable the members of the Francophone minority to resist an increasing rate of assimilation: Appeal Book, Vol. 1, at page 83, affidavit of Mr. Desrochers, at paragraphs 2 and 3. It has clearly had some success with the Francophone community and its services have been retained many times.
[13] On March 15, 2000, the appellants filed a complaint with the Commissioner of Official Languages (the Commissioner). They criticized North Simcoe’s dearth of services in French. The complaint resulted in a report by the Commissioner dated September 2001.
[14] The Commissioner’s investigation focused on North Simcoe’s ability to provide services in French to the area’s Francophone population. It was conducted in the light of Parts IV and VII of the OLA. At page 14 of her report, the Commissioner concluded that North Simcoe was not in full compliance with the provisions of the language clause in its agreement with the Department and that the Department had failed in its commitment to support the development of the Francophone community in Simcoe county. She held the Department responsible for ensuring that appropriate corrective action be taken in the short term and that, in the long term, measures be taken to guarantee a lasting and satisfactory solution: Appeal Book, Vol. 1, at page 126.
[15] The Department expressed its willingness to abide by the recommendation of the Commissioner, and the latter followed up on the former’s action. At the end of two follow-up reports dated June 2003 and August 2004, the Commissioner concluded, on the basis of the evidence she had at her disposal, that:
[translation]
The French-language services provided by [North Simcoe] are not equal in quality to those provided in English. Furthermore, there is no evidence that Industry Canada/FedNor has determined the economic and community development needs of the Francophone community or responded to them. We conclude that notwithstanding the efforts made by [North Simcoe] and Industry Canada/FedNor, the latter is still not in full compliance with Parts IV and VII of the Official Languages Act in regard to the provision of CFDC services in North Simcoe.
[16] Following this the appellants decided to file the application provided for in subsection 77(1) of the OLA.
DECISION OF THE FEDERAL COURT JUDGE
[17] The judge said that in his opinion North Simcoe was implementing a specific governmental policy or program. Therefore, it was acting on behalf of the Department within the meaning of section 25 of the OLA. The Department thus had a duty to ensure that equal services were provided in both official languages exactly as if the services were provided by Industry Canada itself. This it had not done: see paragraph 38 of his decision. According to the judge, this breach occurred in the year 2000. At paragraph 44 of his decision, he found that “if the proceedings had been instituted in 2000, Industry Canada would clearly have been found in breach of the duty imposed upon it by section 25.”
[18] But the judge said that, in his opinion, North Simcoe, at the time the proceedings were instituted, in 2004, was providing equal services and was capable of communicating in French: see paragraph 73 of his decision. This finding essentially flowed from the following findings, at paragraph 44 of his decision:
If the proceedings had been instituted in 2000, Industry Canada would clearly have been found in breach of the duty imposed upon it by section 25. At that time, North Simcoe had difficulty even answering the telephone in French. However, by the time the proceedings were taken, it had hired a bilingual receptionist, had a French-speaking loan officer, created a French-speaking loan committee and had a number of French-speaking directors. It also has a bilingual library and website. Its French component is far greater than the community as a whole. French speakers are a definite minority comprising only about 6% of the population.
[19] The judge rejected the appellants’ argument that Part VII of the OLA creates rights and obligations giving rise to remedial measures. He appropriately followed Forum des maires v. Canada, [2004] 4 F.C.R. 276, a decision of this Court.
[20] The judge also ruled that it was not warranted to grant the appellants the relief they sought, having ruled that their claim for relief was without merit. The appellants had sought an order:
[translation]
a. declaring that the respondents have violated and continue to violate Parts IV and VII of the Official Languages Act, R.S.C. 1985, c. 31 (4th Supp.) (hereinafter “OLA”);
b. declaring that the respondents have violated and continue to violate subsections 16(1) and 20(1) of the Canadian Charter of Rights and Freedoms (hereinafter “Charter”);
c. declaring that the respondents have violated and continue to violate the unwritten constitutional principle of respect for and protection of minorities;
d. enjoining the respondents to:
i. comply with Part IV of the OLA in the application of the Department of Industry Act, S.C. 1995, c. 1 and the Community Futures Program;
ii. comply with Part VII of the OLA in the application of the Department of Industry Act, S.C. 1995, c. 1 and the Community Futures Program;
iii. comply with the constitutional obligations set out in subsections 16(1) and 20(1) of the Charter in the application of the Department of Industry Act, S.C. 1995, c. 1 and the Community Futures Program;
iv. comply with the unwritten constitutional principle of respect for and protection of minorities in the application of the Department of Industry Act, S.C. 1995, c. 1 and the Community Futures Program;
v. to pay to the applicants the sum of $2,450,000 in damages;
vi. to grant the Corporation de développement économique communautaire CALDECH permanent and stable funding that includes, inter alia:
A. annual operational funding in the amount of $300,000; and
B. an investment fund in the amount of $1,500,000; and
e. granting the applicants:
i. costs on this application, and
ii. any further remedy that this Honourable Court might consider appropriate.
[21] Finally, he did not make any order in favour of either party concerning costs, although the application for relief had been dismissed and although subsection 81(2) of the OLA allowed him to grant costs to the appellants notwithstanding the dismissal of their application.
RELIEF SOUGHT ON APPEAL
[22] The appellants are seeking on appeal essentially the same relief as before the trial judge, but with some modifications. They are no longer seeking an order declaring that the respondents have violated and continue to violate subsections 16(1) and 20(1) of the Canadian Charter of Rights and Freedoms (the Charter). Therefore, they are no longer seeking an order enjoining them to comply with the Charter. In the trial court, those claims were made in paragraph b. and subparagraph d. iii.
[23] Similarly, they have abandoned their claim for $2,450,000 in damages that is set out in subparagraph d. v.; in lieu thereof, they are seeking a payment of $25,000 per month for each month that the CALDECH has not been subsidized since March 15, 2000.
[24] Finally, they are no longer claiming an investment fund of $1,500,000.
RESPONSIBILITY OF THE GOVERNMENT OF CANADA FOR THE PROGRAM UNDER THE DIA
[25] It is not disputed that the program initiated by the Department to promote regional economic development in Ontario is a program of the Government of Canada. As mentioned earlier, the Minister is given powers and is subject to duties under the DIA in regard to economic development in Ontario, including regional economic development.
[26] The appellants submitted that the services promoting regional economic development in Ontario provided pursuant to sections 8 and 9 of the DIA to the majority Anglophone and minority Francophone communities must be of equal quality. Now, they claimed, the services available to the Francophone minority are inferior in quality. They alleged that there are no services of equal quality for the Francophones in the region of Huronia. The services do not result in projects culturally adapted to the minority: see paragraphs 9 and 10 of the Amended Memorandum of Fact and Law of the appellants, where they wrote: [translation] “The minorit