Great Lakes United v. Canada (Environment)

Great Lakes United v. Canada (Environment)
Court (s) Database
Federal Court Decisions
Date
2009-04-23
Neutral citation
2009 FC 408
File numbers
T-1922-07
Notes
Reported Decision
Decision Content
Date: 20090423
Docket: T-1922-07
Citation: 2009 FC 408
Ottawa, Ontario, April 23, 2009
PRESENT: The Honourable Mr. Justice Russell
BETWEEN:
GREAT LAKES UNITED and
MININGWATCH CANADA
Applicants
and
MINISTER OF THE ENVIRONMENT
Respondent
and
MINING ASSOCIATION OF CANADA
Intervener
REASONS FOR JUDGMENT AND JUDGMENT
[1] This is an application for judicial review of the Minister of the Environment’s ongoing failure under the Canadian Environmental Protection Act, 1999, R.S.C. 1999, c. C-33 (CEPA) to require reporting by mining facilities of releases or transfers of pollutants to waste rock and tailings disposal areas.
[2] The Applicants are seeking a declaration that the Minister has erred in interpreting CEPA by not providing such pollutant release information to the public through the National Pollutant Release Inventory (NPRI) in 2006 and subsequent years, and an order in the nature of mandamus directing the Minister to publish through the NPRI data from mining facilities of releases to tailings and waste rock disposal areas for the 2006 reporting year and subsequent years in accordance with sections 48 and 50 of CEPA.
BACKGROUND
Waste Rock and Tailings
[3] Waste rock and tailings are created from mining. There are three steps involved in extracting ore from the ground and processing it:
1) Removal of “overburden” such as soil, sand and gravel, trees, lichens, mosses, and other vegetation;
2) Break up and removal of “waste rock” (rock that surrounds or overlays the ore) to access the ore; and
3) Crushing of the ore to a powder and processing it to extract minerals, the waste from which is referred to as “tailings.”
[4] More than 99 percent of the overburden, rock and ore removed to extract minerals is disposed of to overburden heaps and waste rock and tailings disposal areas.
[5] Ore contains minerals and chemical compounds as well as the economic mineral it is processed to extract. Ore may also contain varying amounts of metals that include aluminium, arsenic, cadmium, copper, mercury, nickel and selenium, all of which are pollutants listed under the NPRI system. Most mining in Canada occurs in rock with high sulphur content. When sulphur comes into contact with water, it generates sulphuric acid, which is also a pollutant listed under the NPRI. Although each ore body has unique properties, it all possesses the potential for environmental impact when materials are removed from the ground.
[6] The extraction of ore or minerals requires the removal of rock, or ore of too low a grade for processing, in order to gain access to the ore. This material is referred to as “waste rock” and is part of the mining process. Waste rock inside a facility is placed in waste rock storage areas (WRSAs). The processing of mined materials generates tailings which are usually managed inside a facility in a tailings impoundment area (TIA).
[7] When ore is broken down through mining and exposed to sun, wind, air and water, the pollutants contained in the ore, as well as those added during processing, are mobilized and can pose hazards to the environment and human health when sent to WRSAs and TIAs.
[8] In some mining communities, residences are built directly beside WRSAs and TIAs.
National Pollutant Release Inventory (NPRI)
[9] The NPRI was created in 1993 by the Minister of the Environment when he accepted the recommendations of a Multi-stakeholder Advisory Committee made up of representatives from industry, environmental groups, and labour, as well as provincial and federal governments. The Minister used the provisions of the Canadian Environmental Protection Act (1988), R.S. c. 16 (4th Supp.) to compel certain persons to report specified information.
[10] The NPRI provides an annual, publicly available inventory of industrial and commercial pollutants released into the Canadian environment. It relies on multi-stakeholder consultations to inform the Minister and assist him/her in determining the pollutant reporting requirements under the current Act.
[11] Since the creation of the NPRI, the processing of mined materials has always been reportable. Since 2006, NPRI reporting has also been required for mining extraction activities. While the Minister has always required the NPRI reporting of NPRI substances that leave a TIA and WRSA, the Minister has never required the NPRI reporting of substances as part of controlled movements of tailings or waste rock inside a facility to a TIA or WRSA.
[12] Until October 2007, extensive consultations have taken place over the years between Environment Canada and stakeholders on the issue of whether the movement of tailings or waste rock inside a facility to a TIA or WRSA should be reported. This consultative process has been suspended since this application for judicial review was initiated in November 2007.
ISSUES
[13] The following issues are raised in this application:
1) The standing of the Applicants;
2) The proper standard of review of the Respondent Minister’s on-going failure to require the reporting of releases or transfers of pollutants to WRSAs and TIAs;
3) Whether the Minister’s conduct does or does not comply with CEPA;
4) Appropriate remedies.
Preliminary Issue
[14] The Respondent submits that this application was filed in November 2007 seeking judicial review of the Minister’s decision not to require reporting of certain mining data in the 2006 Notice dated February 25, 2006. Therefore, the Respondent submits that this application is out of time because it was not brought within 30 days of the date of the 2006 Notice: Federal Courts Act, R.S.C. 1985, c. F-7, section 18.1(2). The Intervener agrees with the Respondent on this issue.
[15] If the Applicants needed an extension of time to file this application, the Respondent submits that they should have sought an extension. Their failure to do so is fatal to this application: Goodwin v. Canada (Minister of Fisheries and Oceans), [2005] F.C.J. No. 1438.
[16] The Intervener submits that the Applicants have delayed in bringing their application well beyond the 30-day time limit set out in subsection 18.1(2) of the Federal Courts Act. There is no ongoing action because the Minister made a Decision that was communicated in the 2006 Notice and confirmed in letters sent to the Applicants in November 2006. The Applicants should have attacked the 2006 Notice in November 2006 at the latest, but they have failed to follow that process or address the delay with a reasonable explanation. The Intervener asks that the application be dismissed for delay.
[17] In reply, the Applicants submit that they do not seek to attack a specific notice of the Minister. The Applicants say they are challenging an ongoing course of action of the Minister to exempt pollutants sent to TIAs and WRSAs from the reporting requirements, and the Minister’s failure to publish such information in the NPRI in accordance with his statutory duties as set out in sections 2, 48 and 50 of CEPA. As this ongoing course of action constitutes the “Decision” in this matter, the Applicants submit that the 30-day time limit stipulated by section 18.1(2) of the Federal Courts Act is inapplicable in this case: Krause v. Canada, [1999] 2 F.C. 476 at paragraphs 23-24 (F.C.A.); Canadian Assn. of the Deaf v. Canada 2006 FC 971 at paragraphs 71-72 (F.C.A.).
STATUTORY PROVISIONS
[18] The following provisions of CEPA are applicable in these proceedings:
Duties of the Government of Canada
2. (1) In the administration of this Act, the Government of Canada shall, having regard to the Constitution and laws of Canada and subject to subsection (1.1),
(a) exercise its powers in a manner that protects the environment and human health, applies the precautionary principle that, where there are threats of serious or irreversible damage, lack of full scientific certainty shall not be used as a reason for postponing cost-effective measures to prevent environmental degradation, and promotes and reinforces enforceable pollution prevention approaches;
(a.1) take preventive and remedial measures to protect, enhance and restore the environment;
(b) take the necessity of protecting the environment into account in making social and economic decisions;
(c) implement an ecosystem approach that considers the unique and fundamental characteristics of ecosystems;
(d) endeavour to act in cooperation with governments to protect the environment;
(e) encourage the participation of the people of Canada in the making of decisions that affect the environment;
(f) facilitate the protection of the environment by the people of Canada;
(g) establish nationally consistent standards of environmental quality;
(h) provide information to the people of Canada on the state of the Canadian environment;
(i) apply knowledge, including traditional aboriginal knowledge, science and technology, to identify and resolve environmental problems;
(j) protect the environment, including its biological diversity, and human health, from the risk of any adverse effects of the use and release of toxic substances, pollutants and wastes;
(j.1) protect the environment, including its biological diversity, and human health, by ensuring the safe and effective use of biotechnology;
(k) endeavour to act expeditiously and diligently to assess whether existing substances or those new to Canada are toxic or capable of becoming toxic and assess the risk that such substances pose to the environment and human life and health;
(l) endeavour to act with regard to the intent of intergovernmental agreements and arrangements entered into for the purpose of achieving the highest level of environmental quality throughout Canada;
(m) ensure, to the extent that is reasonably possible, that all areas of federal regulation for the protection of the environment and human health are addressed in a complementary manner in order to avoid duplication and to provide effective and comprehensive protection;
(n) endeavour to exercise its powers to require the provision of information in a coordinated manner; and
(o) apply and enforce this Act in a fair, predictable and consistent manner.
Monitoring, research and publication
44. (1) The Minister shall
(a) establish, operate and maintain a system for monitoring environmental quality;
(b) conduct research and studies relating to pollution prevention, the nature, transportation, dispersion, effects, control and abatement of pollution and the effects of pollution on environmental quality, and provide advisory and technical services and information related to that research and those studies;
(c) conduct research and studies relating to
(i) environmental contamination arising from disturbances of ecosystems by human activity,
(ii) changes in the normal geochemical cycling of toxic substances that are naturally present in the environment, and
(iii) detection and damage to ecosystems;
(d) collect, process, correlate, interpret, create an inventory of and publish on a periodic basis data on environmental quality in Canada from monitoring systems, research, studies and any other sources;
(e) formulate plans for pollution prevention and the control and abatement of pollution, including plans respecting the prevention of, preparedness for and response to an environmental emergency and for restoring any part of the environment damaged by or during an emergency, and establish, operate and publicize demonstration projects and make them available for demonstration; and
(f) publish, arrange for the publication of or distribute through an information clearing-house
(i) information respecting pollution prevention,
(i) pertinent information in respect of all aspects of environmental quality, and
(ii) a periodic report on the state of the Canadian environment.
Cooperation and agreements
(2) The Minister may
(a) in establishing a system referred to in paragraph (1)(a), cooperate with governments, foreign governments and aboriginal people and with any person who has established or proposes to establish any such system; and
(b) with the approval of the Governor in Council, enter into agreements for the operation or maintenance of a system referred to in paragraph (1)(a) by the Minister on behalf of any government, aboriginal people or any person or for the operation or maintenance of any such system by the government or any person on behalf of the Minister.
Cooperation with other bodies
(3) The Minister may, in exercising the powers conferred by paragraphs (1)(b) to (e), act in cooperation with any government, foreign government, government department or agency, institution, aboriginal people or any person and may sponsor or assist in any of their research, studies, planning or activities in relation to environmental quality, pollution prevention, environmental emergencies or the control or abatement of pollution.
Hormone disrupting substances
(4) The Ministers shall conduct research or studies relating to hormone disrupting substances, methods related to their detection, methods to determine their actual or likely short-term or long-term effect on the environment and human health, and preventive, control and abatement measures to deal with those substances to protect the environment and human health.
Role of Minister of Health
45. The Minister of Health shall
(a) conduct research and studies relating to the role of substances in illnesses or in health problems;
(b) collect, process, correlate and publish on a periodic basis data from any research or studies done under paragraph (a); and
(c) distribute available information to inform the public about the effects of substances on human health.
Notice requiring information
46. (1) The Minister may, for the purpose of conducting research, creating an inventory of data, formulating objectives and codes of practice, issuing guidelines or assessing or reporting on the state of the environment, publish in the Canada Gazette and in any other manner that the Minister considers appropriate a notice requiring any person described in the notice to provide the Minister with any information that may be in the possession of that person or to which the person may reasonably be expected to have access, including information regarding the following:
(a) substances on the Priority Substances List;
(b) substances that have not been determined to be toxic under Part 5 because of the current extent of the environment’s exposure to them, but whose presence in the environment must be monitored if the Minister considers that to be appropriate;
(c) substances, including nutrients, that can be released into water or are present in products like water conditioners and cleaning products;
(d) substances released, or disposed of, at or into the sea;
(e) substances that are toxic under section 64 or that may become toxic;
(f) substances that may cause or contribute to international or interprovincial pollution of fresh water, salt water or the atmosphere;
(g) substances or fuels that may contribute significantly to air pollution;
(h) substances that, if released into Canadian waters, cause or may cause damage to fish or to their habitat;
(i) substances that, if released into areas of Canada where there are migratory birds, endangered species or other wildlife regulated under any other Act of Parliament, are harmful or capable of causing harm to those birds, species or wildlife;
(j) substances that are on the list established under regulations made under subsection 200(1);
(k) the release of substances into the environment at any stage of their life-cycle;
(l) pollution prevention; and
(m) use of federal land and of aboriginal land.
Other recipient
(2) The Minister may, in accordance with an agreement signed with a government, require that a person to whom a notice is directed submit the information to the Minister or to that government.
Conditions respecting access to information
(3) An agreement referred to in subsection (2) shall set out conditions respecting access by the Minister or other government to all or part of the information that the person is required to submit and may set out any other conditions respecting the information.
Period of notice and date for compliance
(4) A notice referred to in subsection (1) must indicate the period during which it is in force, which may not exceed three years, and the date or dates within which the person to whom the notice is directed shall comply with the notice.
Compliance with notice
(5) Every person to whom a notice is directed shall comply with the notice.
Extension of time
(6) The Minister may, on request in writing from any person to whom a notice is directed, extend the date or dates within which the person shall comply with the notice.
Manner
(7) The notice must indicate the manner in which the information is to be provided.
Preservation of information
(8) The notice may indicate the period during which, and the location where, the person to whom the notice is directed shall keep copies of the required information, together with any calculations, measurements and other data on which the information is based. The period may not exceed three years from the date the information is required to be submitted to the Minister.
Guidelines
47. (1) The Minister shall issue guidelines respecting the use of the powers provided for by subsection 46(1) and, in issuing those guidelines, the Minister shall take into account any factor that the Minister considers relevant, including, but not limited to,
(a) the costs and benefits to the Minister and the person to whom the notice under subsection 46(1) is directed;
(b) the co-ordination of requests for information with other governments, to the extent practicable; and
(c) the manner in which the information collected under subsection 46(1) is to be used.
Consultation
(2) In carrying out the duties under subsection (1), the Minister shall offer to consult with the government of a province and the members of the Committee who are representatives of aboriginal governments and may consult with a government department or agency, aboriginal people, representatives of industry and labour and municipal authorities or with persons interested in the quality of the environment.
Minister may act
(3) At any time after the 60th day following the day on which the Minister offers to consult in accordance with subsection (2), the Minister may act under subsection (1) if the offer to consult is not accepted by the government of a province or members of the Committee who are representatives of aboriginal governments.
National inventory
48. The Minister shall establish a national inventory of releases of pollutants using the information collected under section 46 and any other information to which the Minister has access, and may use any information to which the Minister has access to establish any other inventory of information.
Publication in whole or in part
49. The notice published under subsection 46(1) must indicate whether or not the Minister intends to publish the information and, if so, whether in whole or in part.
Publication of inventory
50. Subject to subsection 53(4), the Minister shall publish the national inventory of releases of pollutants in any manner that the Minister considers appropriate and may publish or give notice of the availability of any other inventory of information established under section 48, in any manner that the Minister considers appropriate.
Request for confidentiality
51. A person who provides information to the Minister under subsection 46(1) may, if the Minister’s intention to publish the information has been indicated under section 49, submit with the information a written request, setting out a reason referred to in section 52, that the information be treated as confidential.
Reasons
52. Despite Part 11, a request under section 51 may only be based on any of the following reasons:
(a) the information constitutes a trade secret;
(b) the disclosure of the information would likely cause material financial loss to, or prejudice to the competitive position of, the person providing the information or on whose behalf it is provided; and
(c) the disclosure of the information would likely interfere with contractual or other negotiations being conducted by the person providing the information or on whose behalf it is provided.
Additional justification
53. (1) The Minister may, after studying the reasons provided under section 52, require the person in question to provide, within 20 days and in writing, additional justification for the request for confidentiality.
Extension of time
(2) The Minister may extend the period mentioned in subsection (1) by up to 10 days if the extension is necessary to permit adequate preparation of the additional justification.
Minister’s decision
(3) In determining whether to accept or reject the request, the Minister shall consider whether the reasons are well-founded and, if they are, the Minister may nevertheless reject the request if
(a) the disclosure is in the interest of the protection of the environment, public health or public safety; and
(b) the public interest in the disclosure outweighs in importance
(i) any material financial loss or prejudice to the competitive position of the person who provided the information or on whose behalf it was provided, and
(ii) any damage to the privacy, reputation or human dignity of any individual that may result from the disclosure.
Acceptance of request
(4) If the Minister accepts the request, the information shall not be published.
Publication
(5) If the Minister rejects the request,
(a) the person has the right to ask the Federal Court to review the matter within 30 days after the person is notified that the request has been rejected or within any further time that the Court may, before the expiry of those 30 days, fix or allow; and
(b) the Minister shall advise the person in question of the Minister’s intention to publish the information and of the person’s right to ask the Federal Court to review the matter.
Applicable provisions
(6) Where a person asks the Federal Court to review the matter under paragraph (5)(a), sections 45, 46 and 47 of the Access to Information Act apply, with any modifications that the circumstances require, in respect of a request for a review under that paragraph as if it were an application made under section 44 of that Act.
Formulation by the Minister
54. (1) For the purpose of carrying out the Minister’s mandate related to preserving the quality of the environment, the Minister shall issue
(a) environmental quality objectives specifying goals or purposes for pollution prevention or environmental control, including goals or purposes stated in quantitative or qualitative terms;
(b) environmental quality guidelines specifying recommendations in quantitative or qualitative terms to support and maintain particular uses of the environment;
(c) release guidelines recommending limits, including limits expressed as concentrations or quantities, for the release of substances into the environment from works, undertakings or activities; and
(d) codes of practice respecting pollution prevention or specifying procedures, practices or release limits for environmental control relating to works, undertakings and activities during any phase of their development and operation, including the location, design, construction, start-up, closure, dismantling and clean-up phases and any subsequent monitoring activities.
Scope of objectives, etc.
(2) The objectives, guidelines and codes of practice referred to in subsection (1) shall relate to
(a) the environment;
(b) pollution prevention or the recycling, reusing, treating, storing or disposing of substances or reducing the release of substances into the environment;
(c) works, undertakings or activities that affect or may affect the environment; or
(d) the conservation of natural resources and sustainable development.
Consultation
(3) In carrying out the duties under subsection (1), the Minister shall offer to consult with the government of a province and the members of the Committee who are representatives of aboriginal governments and may consult with a government department or agency, aboriginal people, representatives of industry and labour and municipal authorities or with persons interested in the quality of the environment.
Minister may act
(3.1) At any time after the 60th day following the day on which the Minister offers to consult in accordance with subsection (3), the Minister may act under subsection (1) if the offer to consult is not accepted by the government of a province or members of the Committee who are representatives of aboriginal governments.
Publication
(4) The Minister shall publish any objectives, guidelines or codes of practice issued under this section, or give notice of them, in the Canada Gazette and in any other manner that the Minister considers appropriate.
Formulation by the Minister of Health
55. (1) For the purpose of carrying out the mandate of the Minister of Health related to preserving and improving public health under this Act, the Minister of Health shall issue objectives, guidelines and codes of practice with respect to the elements of the environment that may affect the life and health of the people of Canada.
Consultation
(2) In carrying out the duties under subsection (1), the Minister of Health may consult with a government, a government department or agency, aboriginal people, representatives of industry and labour and municipal authorities or with persons interested in the preservation and improvement of public health.
Publication
(3) The Minister of Health shall publish any objectives, guidelines or codes of practice issued under this section, or give notice of them, in the Canada Gazette and in any other manner that the Minister of Health considers appropriate.
Mission du gouvernement fédéral
2. (1) Pour l’exécution de la présente loi, le gouvernement fédéral doit, compte tenu de la Constitution et des lois du Canada et sous réserve du paragraphe (1.1) :
a) exercer ses pouvoirs de manière à protéger l’environnement et la santé humaine, à appliquer le principe de la prudence, si bien qu’en cas de risques de dommages graves ou irréversibles à l’environnement, l’absence de certitude scientifique absolue ne doit pas servir de prétexte pour remettre à plus tard l’adoption de mesures effectives visant à prévenir la dégradation de l’environnement, ainsi qu’à promouvoir et affermir les méthodes applicables de prévention de la pollution;
a.1) prendre des mesures préventives et correctives pour protéger, valoriser et rétablir l’environnement;
b) prendre ses décisions économiques et sociales en tenant compte de la nécessité de protéger l’environnement;
c) adopter une approche qui respecte les caractéristiques uniques et fondamentales des écosystèmes;
d) s’efforcer d’agir en collaboration avec les gouvernements pour la protection de l’environnement;
e) encourager la participation des Canadiens à la prise des décisions qui touchent l’environnement;
f) faciliter la protection de l’environnement par les Canadiens;
g) établir des normes de qualité de l’environnement uniformes à l’échelle nationale;
h) tenir informée la population du Canada sur l’état de l’environnement canadien;
i) mettre à profit les connaissances, y compris les connaissances traditionnelles des autochtones, et les ressources scientifiques et techniques, pour cerner et résoudre les problèmes relatifs à l’environnement;
j) préserver l’environnement — notamment la diversité biologique — et la santé humaine des risques d’effets nocifs de l’utilisation et du rejet de substances toxiques, de polluants et de déchets;
j.1) protéger l’environnement — notamment la diversité biologique — et la santé humaine en assurant une utilisation sécuritaire et efficace de la biotechnologie;
k) s’efforcer d’agir avec diligence pour déterminer si des substances présentes ou nouvelles au Canada sont toxiques ou susceptibles de le devenir et pour évaluer le risque qu’elles présentent pour l’environnement et la vie et la santé humaines;
l) s’efforcer d’agir compte tenu de l’esprit des accords et arrangements intergouvernementaux conclus en vue d’atteindre le plus haut niveau de qualité de l’environnement dans tout le Canada;
m) veiller, dans la mesure du possible, à ce que les textes fédéraux régissant la protection de l’environnement et de la santé humaine soient complémentaires de façon à éviter le dédoublement et assurer une protection efficace et complète;
n) s’efforcer d’exercer, de manière coordonnée, les pouvoirs qui lui permettent d’exiger la communication de renseignements;
o) d’appliquer la présente loi de façon juste, prévisible et cohérente;
Contrôle, recherche et publication
44. (1) Le ministre doit :
a) constituer et exploiter un réseau de contrôle de la qualité de l’environnement;
b) effectuer des recherches et des études sur la prévention, la nature, le transport et la dispersion de la pollution, la lutte contre celle-ci, sa réduction et ses effets sur la qualité de l’environnement, et fournir des services consultatifs et techniques de même que l’information à ce sujet;
c) effectuer des recherches et des études concernant notamment le repérage des dommages causés aux écosystèmes et leur évaluation, la contamination de l’environnement résultant de la perturbation d’écosystèmes par l’activité humaine et les modifications du cycle géochimique normal des substances toxiques naturellement présentes dans l’environnement;
d) recueillir, traiter, corréler, interpréter et publier périodiquement les données sur la qualité de l’environnement au Canada provenant du réseau de contrôle, de recherches, d’études et d’autres sources utiles, et établir un inventaire de ces données;
e) élaborer des plans de prévention et de réduction de la pollution, de lutte contre celle-ci, notamment pour prévenir les urgences environnementales, mettre sur pied des dispositifs d’alerte et de préparation, remédier à ces urgences et réparer les dommages en découlant, ainsi que pour préparer des projets pilotes, les rendre publics et en faire la démonstration, ou les rendre accessibles pour démonstration;
f) diffuser — notamment par l’intermédiaire d’un bureau central d’information ou par publication — ou prendre les mesures en vue de diffuser l’information sur la prévention de la pollution et l’information pertinente sur tous les aspects de la qualité de l’environnement, et faire rapport périodiquement sur l’état de l’environnement canadien.
Collaboration avec un autre gouvernement
(2) Le ministre peut collaborer, pour la constitution du réseau visé à l’alinéa (1)a) avec les gouvernements — y compris étrangers — , peuples autochtones ou personnes ayant établi ou projetant d’établir un tel réseau et conclure, avec l’agrément du gouverneur en conseil, des accords en vue de son exploitation ou entretien par ses soins, pour leur compte, ou inversement.
Collaboration avec d’autres organismes
(3) Pour l’exercice des pouvoirs qui lui sont conférés par les alinéas (1)b) à e), le ministre peut agir en collaboration avec les gouvernements — y compris étrangers — , ministères, organismes publics, institutions, peuples autochtones ou personnes, financer leurs recherches, études, planification ou initiatives relatives aux urgences environnementales, à la qualité de l’environnement, à la prévention de la pollution, à la lutte contre la pollution de l’environnement ou à sa réduction, ou les aider d’une autre façon.
Substances hormonoperturbantes
(4) Les ministres effectuent des recherches ou des études sur les substances hormonoperturbantes, les méthodes de détection de celles-ci et de détermination de leurs effets — actuels ou potentiels, à court ou à long terme — sur l’environnement et la santé humaine, ainsi que les mesures de prévention et de lutte contre ces effets.
Rôle du ministre de la Santé
45. Le ministre de la Santé doit :
a) effectuer des recherches et des études sur le rôle des substances dans les maladies ou troubles de la santé;
b) recueillir, traiter, corréler et publier périodiquement les données provenant des recherches et des études faites en vertu de l’alinéa a);
c) diffuser l’information disponible pour renseigner le public sur les effets des substances sur la santé humaine.
Demande de renseignements
46. (1) Le ministre peut, par un avis publié dans la Gazette du Canada et, s’il l’estime indiqué, de toute autre façon, exiger de toute personne qu’elle lui communique les renseignements dont elle dispose ou auxquels elle peut normalement avoir accès pour lui permettre d’effectuer des recherches, d’établir un inventaire de données, des objectifs et des codes de pratique, de formuler des directives, de déterminer l’état de l’environnement ou de faire rapport sur cet état, notamment les renseignements concernant :
a) les substances figurant sur la liste des substances d’intérêt prioritaire;
b) les substances qui n’ont pas été jugées toxiques aux termes de la partie 5 compte tenu de l’état actuel d’exposition de l’environnement, mais dont la présence doit être surveillée si le ministre le juge indiqué;
c) les substances — nutritives ou autres — qui peuvent être rejetées dans l’eau ou qui sont présentes dans des produits tels que des conditionneurs d’eau et des produits de nettoyage;
d) les substances rejetées ou immergées en mer;
e) les substances qui sont toxiques aux termes de l’article 64 ou susceptibles de le devenir;
f) les substances qui peuvent causer la pollution transfrontalière soit de l’eau, douce ou salée, soit de l’atmosphère, ou qui peuvent y contribuer;
g) les substances ou combustibles dont la présence dans l’atmosphère peuvent contribuer sensiblement à la pollution atmosphérique;
h) les substances qui, lorsqu’elles sont rejetées dans des eaux canadiennes, causent des dommages aux poissons ou à leur habitat, ou risquent d’en causer;
i) les substances qui, lorsqu’elles sont rejetées dans les régions du Canada où se trouvent des oiseaux migrateurs, des espèces en péril ou d’autres espèces fauniques ou végétales de compétence fédérale, ont un effet nocif sur ceux-ci ou en sont susceptibles;
j) les substances inscrites sur la liste établie au titre des règlements d’application du paragraphe 200(1);
k) les rejets de substances dans l’environnement à toute étape de leur cycle de vie;
l) la prévention de la pollution;
m) l’utilisation du territoire domanial et des terres autochtones.
Tiers destinataire
(2) Il peut également, conformément à tout accord signé avec un gouvernement, obliger la personne visée par l’avis à lui communiquer les renseignements ou à les communiquer à ce gouvernement.
Conditions
(3) L’accord fixe les conditions d’accès par le ministre ou le gouvernement aux renseignements — en tout ou en partie; il peut aussi fixer d’autres conditions relatives à ceux-ci.
Validité de l’avis et délai pour communiquer les renseignements
(4) L’avis précise la durée de sa validité, d’un maximum de trois ans, et le délai impartie au destinataire pour communiquer les renseignements.
Avis obligatoire
(5) Le destinataire de l’avis est tenu de s’y conformer.
Prorogation du délai
(6) Le ministre peut, sur demande écrite du destinataire, proroger le délai indiqué dans l’avis.
Type de communication
(7) Il précise dans l’avis de quelle façon il entend que les renseignements soient communiqués.
Conservation des renseignements
(8) Il peut en outre indiquer la durée et le lieu de conservation des renseignements exigés, ainsi que des calculs, mesures et autres données sur lesquels ils s’appuient. Les renseignements ne peuvent être conservés plus de trois ans après l’expiration du délai fixé conformément aux paragraphes (4) ou (6).
Directives
47. (1) Le ministre établit des directives concernant l’exercice des pouvoirs prévus au paragraphe 46(1), en tenant compte de tout facteur qu’il juge pertinent, notamment :
a) les coûts et les avantages pour lui et la personne visée par l’avis;
b) la coordination — dans la mesure où elle est possible — des demandes de renseignements avec tout autre gouvernement;
c) les modalités d’utilisation des renseignements visés à ce paragraphe.
Consultation
(2) À cette fin, il propose de consulter les gouvernements provinciaux ainsi que les membres du comité qui sont des représentants de gouvernements autochtones; il peut aussi consulter tout ministère, organisme public ou peuple autochtone, tout représentant de l’industrie, des travailleurs et des municipalités ou toute personne concernée par la qualité de l’environnement.
Délai
(3) Après les soixante jours suivant la date de la proposition de consultation faite en application du paragraphe (2), le ministre peut agir conformément au paragraphe (1) si le gouvernement d’une province ou les membres du comité qui sont des représentants de gouvernements autochtones n’acceptent pas l’offre.
Inventaire national
48. Le ministre établit l’inventaire national des rejets polluants à l’aide des renseignements auxquels il a accès, notamment ceux obtenus en application de l’article 46, et peut, de la même façon, établir tout autre inventaire.
Publication intégrale ou non
49. Le ministre précise dans son avis s’il a l’intention de publier les renseignements dont il exige la communication, et, dans l’affirmative, s’il a l’intention de les publier en tout ou en partie.
Publication des inventaires
50. Sous réserve du paragraphe 53(4), le ministre publie l’inventaire national des rejets polluants de la façon qu’il estime indiquée et peut publier tout inventaire établi en application de l’article 48 — ou signaler qu’on peut le consulter — de la façon qu’il estime indiquée.
Demande de confidentialité
51. La personne qui communique des renseignements au ministre au titre du paragraphe 46(1) peut, lorsque ce dernier a précisé son intention de les publier conformément à l’article 49, exiger par écrit — en énonçant un des motifs prévus à l’article 52 — qu’ils soient traités de façon confidentielle.
Motifs
52. Malgré toute disposition de la partie 11, la demande de confidentialité ne peut se fonder que sur l’un ou l’autre des motifs suivants :
a) les renseignements communiqués constituent un secret industriel;
b) leur divulgation risquerait vraisemblablement de causer des pertes financières importantes à l’intéressé ou de nuire à sa compétitivité;
c) leur divulgation risquerait vraisemblablement d’entraver des négociations — contractuelles ou autres — menées par l’intéressé.
Justifications
53. (1) Le ministre peut, après avoir pris connaissance des motifs invoqués à l’appui de la demande de confidentialité, exiger de son auteur qu’il lui fasse parvenir par écrit, dans un maximum de vingt jours, des justifications supplémentaires.
Prolongation du délai
(2) Il peut proroger le délai d’un maximum de dix jours dans le cas où le premier délai ne permettrait pas une préparation adéquate des justifications.
Décision du ministre
(3) Il examine la demande de confidentialité à la lumière des motifs invoqués; s’il les juge fondés, il doit, avant de statuer sur la demande, examiner si la communication des renseignements est dans l’intérêt de la santé ou de la sécurité publiques ou de la protection de l’environnement et déterminer si cet intérêt l’emporte sur les pertes financières importantes ou le préjudice porté à la position concurrentielle de la personne qui les a fournis ou au nom de qui ils l’ont été et sur le préjudice causé à la vie privée, la réputation ou la dignité de toute personne.
Demande agréée
(4) S’il accepte la demande de confidentialité, aucun renseignement n’est publié.
Publication
(5) S’il rejette la demande, il avise l’intéressé de son intention de publier les renseignements et du droit qu’il a, dans les trente jours suivant la date où il est avisé du rejet, de saisir la Cour fédérale pour faire réviser la décision; la