Lavigne v. Human Resources Development

Lavigne v. Human Resources Development
Court (s) Database
Federal Court Decisions
Date
2001-12-12
Neutral citation
2001 FCT 1365
File numbers
T-2152-99
Notes
Reported Decision
Decision Content
Federal Court Reports Lavigne v. Canada (Human Resources Development) (T.D.) [2002] 2 F.C. 165
Date: 20011212
Docket: T-2152-99
Neutral citation: 2001 FCT 1365
IN THE MATTER OF an application pursuant to
Section 77 of the Official Languages Act
R.S.C. 1985, c. 31 (4th Supp.)
BETWEEN:
ROBERT LAVIGNE
Applicant
AND
HUMAN RESOURCES DEVELOPMENT
Respondent
AND
ATTORNEY GENERAL OF CANADA
Respondent
AND
MINISTER OF STATE FOR LABOUR AND
EMPLOYMENT OF QUEBEC
Respondent
AND
ATTORNEY GENERAL FOR QUEBEC
Respondent
REASONS FOR ORDER
LEMIEUX J.:
[1] Robert Lavigne, the applicant, seeks from this Court a remedy pursuant to section 77 of the Official Languages Act of Canada ("OLA"), namely a declaration that the OLA applies to the Labour Market Agreement entered into between the Government of Canada ("Canada") and the Government of Quebec ("Quebec"). He seeks a further declaration of unconstitutionality of those parts of the Labour Market Agreement that say the OLA does not apply to that Agreement. The parts of the Labour Market Agreement referenced are said to be in correspondence exchanged between the responsible Ministers of Canada and Quebec.
A. BACKGROUND
[2] On April 1, 1997, Canada entered into an agreement with Quebec known as the Canada-Quebec Labour Market Agreement in Principle (the "Labour Market Agreement"). Canada's signatories were the Prime Minister, the Minister of Human Development Resources and the Chairperson of Canada Employment Insurance Commission (the "Commission"). Quebec's signatories were its Prime Minister, the Minister of Employment and Solidarity and its Minister of Intergovernmental Affairs.
[3] Section 4.1.4 of the Labour Market Agreement deals with language of service and reads:
4.1.4 [TRANSLATION] With respect to arrangements relating to the language of service in which Québec will deliver the active measures and the national employment service functions for which Québec shall become responsible under this Agreement, the agreement of the parties in that regard was established through their exchange of letters on March 25 and 28 and April 8, 1997, copies of which are attached as an Appendix, with which both parties state that they are satisfied, and which form an integral part of this Agreement. [emphasis mine]
[4] In her letter of March 25, 1997, to the Minister of Human Resources Development of Canada, at the time Pierre Pettigrew, Louise Harel, Minister of State for Employment and Solidarity (Emploi-Québec) confirmed Quebec's position on the issue of language, in particular with regard to three facets: service to clients, the applicability of the Official Languages Act of Canada and of the applicability of the Employment Insurance Act ("EIA"). The most pertinent parts of her letter are:
[TRANSLATION] First, let me inform you of the services which are available to English-speaking clients in Québec in the areas of employment, income security and related active measures. With regard to individuals, service is provided in English, both verbally and in writing, as soon as they so request. Computer information is available in English, on a different screen from the French version. Brochures, leaflets and the like are available in English, on separate displays. Voice mail messages provide for a number that can be dialled to continue the menu in English.
With regard to the language used in providing active employment measures (courses, training sessions, etc.) and employment services which may eventually be covered by an agreement between our two governments, the Government of Québec will make such services available to English-speaking clients according to the same parameters as currently apply to employment, income security and related active measures.
Likewise, subject to the signature of an agreement, the Government of Québec will use appropriate means to inform English-speaking clients of the arrangements regarding language of service, for example, through newspaper advertisements, pamphlets and press releases.
I would also like to state that, in the context of an agreement between our two governments, when Québec, in making available those functions of the National Employment Service for which it will become responsible, is unable, due to the provisions of the Charter of the French Language, to provide service in both official languages in accordance with the Official Languages Act with respect to written communications with corporations established in Québec, Canada and Québec shall agree that, in order to ensure compliance with the Official Languages Act, Canada will exercise those functions instead. As you know, this approach is similar to that adopted in the agreement on the administration within Québec of the GST by the Government of Québec. [emphasis mine]
[5] Louise Harel, in her letter of March 25, 1997, wanted Mr. Pettigrew to confirm the representations of his negotiators with respect to the following federal government interpretations:
· [TRANSLATION] the Official Languages Act does not apply to Québec's active employment measures funded by a contribution from the Employment Insurance Account, since this does not involve a delegation of program management;
· paragraph 57(1)(d.1) of the Employment Insurance Act applies only to individuals and not to corporations. [emphasis mine]
[6] The Quebec Minister concluded her letter by saying the facts clearly show the quality of the service currently being provided by Quebec throughout the province and which is satisfactory to English-speaking clients.
[7] Canada's Minister of Human Resources Development replied by letter dated March 28, 1997, which he said seeks to clarify and confirm the arrangements agreed upon by two governments on the issue of language of service. He wrote in part:
[TRANSLATION] With respect to the language of service and delivery for the active employment measures covered by the agreement, your government will make these services and measures available in English in accordance with the same parameters as currently apply to employment, income security and related active measures. Thus, individuals will be served in English, both verbally and in writing, as soon as they so request. Computer information will be made available in English, on a different screen from the French version. Pamphlets, brochures and the like will be made available in English and readily accessible on separate displays. Voice mail messages will provide for a number that can be dialled to continue the menu in English.
This letter also confirms the understanding between our respective negotiators to the effect that individuals who so request shall have reasonable access to the active employment measures (courses, training sessions, etc.) in English.
Moreover, Québec will make available in both French and English those functions of the National Employment Service (NES) for which it assumes responsibility.
As required and at Quebec's request, Canada agrees to ensure written communications in English with corporations established in Quebec which want communications in that language in the context of the administration of the active employment measures covered by the agreement and the NES functions for which Quebec will be responsible.
I note that, once the agreement is signed, Québec will use appropriate means to inform clients of the arrangements made regarding service in English through pamphlets, periodic newspaper advertising, press releases or other means.
If my understanding of the way in which you will make these services available, as outlined above, concurs with yours, these arrangements are satisfactory to me and meet our legislative requirements. [emphasis mine]
[8] On April 8, 1997, Louise Harel wrote to Mr. Pettigrew to clarify a few points. This is what she wrote:
TRANSLATION] First of all, I am pleased to confirm that I agree with your proposal that Canada provide, as required and at the request of Québec, written communications in English with corporations established in Québec that require that communications with them be in that language in connection with the administration of the National Employment Service functions for which Québec will be responsible, in conformity with what I stated in that regard in my letter of March 25, 1997.
Moreover, I should note that there is no need for me to avail myself of the similar offer you made to me with regard to administration of active employment measures, as the latter, which are aimed at enabling unemployed persons to enter the labour market more quickly, are intended for individuals.
I should also like to note that the description of services available to English-speaking clients in Québec with respect to employment, income security and related active measures as set out in my letter of March 25 satisfies Québec's legislative requirements.[emphasis mine]
[9] On November 28, 1997, Canada and Quebec entered into a second agreement known as the Canada-Québec Labour Market Implementation Agreement ("LMIA"). The language of service provisions in the LMIA reflect those set out in the Labour Market Agreement, paragraph 4.1.4 and the exchange of letters between the ministers.
[10] As a result of the Labour Market Agreement and the LMIA a total of approximately 1,000 federal public servants accepted offers of employment with the Quebec Government.
[11] On June 22, 1999, Robert Lavigne made a complaint to the Commissioner of Official Languages for Canada ("COL") in which he stated the OLA should apply to the Labour Market Agreement and in particular Part IV and the remedies under Part X of the OLA. He believed the letters between the ministers are ultra vires, contravening the Act as a whole as well as certain provisions of the Canadian Charter of Rights and Freedoms. His complaint does not allege or complain of any active employment measure provided by Emploi-Québec and funded under the Labour Market Agreement not made available to him in English.
[12] On December 6, 1999, the COL, pursuant to subsection 58(3) of the OLA informed the applicant the office was discontinuing the investigation of his complaint. The COL stated:
Essentially, the Commissioner came to the conclusion that, in the context surrounding the Canada-Quebec Agreement, Part IV of the OLA concerning the language of communications and services to the public did not apply once the agreement was in place, save for the national employment service which remains a federal responsibility pursuant to the Employment Insurance Act. The federal government has the discretion, in compliance with the Canadian Constitution, to withdraw from the provision of services to the benefit of a province which, within its own jurisdiction, undertook to provide these services. [emphasis mine]
[13] The COL, in the letter to Mr. Lavigne, also stated:
However, as explained in the Government Transformations report, the Commissioner recommended to the federal government, pursuant to Part VII of the OLA, that such arrangements be subject to five general principles..., notably, to preserve any rights which existed prior to an agreement, pursuant to the OLA and its regulations. The provisions of the Canada-Quebec Agreement regarding the language of service and communications which are now the responsibility of the province are similar to those which existed prior to the Agreement. Hence, the objective of the guiding principle recommended by the Commissioner has been respected here. [emphasis mine]
[14] The Commissioner also noted another guiding principle flowing out of the Transformations report notably to consult the official language minority affected by the agreement with regard to its needs and interests and to take appropriate measures. On this point, the COL concluded:
In the context of the provisions of the Canada-Quebec Agreement, the official language minority of Quebec, through its representatives at Alliance Québec, were indeed consulted and they approved the said provisions.
B. FURTHER BACKGROUND
[15] The agreements which Canada and Quebec entered into were part of a Canada-wide proposal the Federal Government made to all provinces and territories on May 30, 1996, proposals tailored with legislation being considered by Parliament, namely, the proposed Employment Insurance Act (Bill C-12).
[16] There were four aspects to Canada's proposal to the provinces and territories, all aimed at helping the unemployed back to work:
(1) Design and delivery by the provinces/territories of active employment measures, funded through the Employment Insurance Fund including wage subsidies, income supplements, support for the self-employed, job creation partnerships, skills loans and grants;
(2) Canada's withdrawal from labour market training. Under the proposal, Canada would cease; (a) to purchase training programs to help persons to acquire new occupational skills, academic upgrading or language training as well as the purchase of the classroom portion of training for apprenticeable trades from colleges and trade schools; (b) to provide assistance to schools, colleges and universities for programs linking learning to employment; (c) to provide assistance to employers to meet skill needs, to retrain workers, or to help members of designated groups by providing formal training based in the workplace with possible off-site classroom training;
(3) the provinces/territories would provide labour market services currently being delivered by Canada such as screening, employment counselling and local labour market placement. They would determine the level and type of assistance a person required from active measures. However, under the proposal, Canada would retain overall management of the labour exchange and national labour market information due to their pan-Canadian nature;
(4) Canada was also prepared to enter into arrangements with the provinces/territories on several functions of the National Employment System (NES) which provides the direct link between the active and passive parts of the national labour market system and had four functions: (a) labour market information, that is, providing information and analysis of the national labour market; (b) labour exchange, that is, matching workers with available jobs and employers with available workers across the country; (c) screening, that is, identifying individual service needs and making a preliminary referral to appropriate services; and (d) employment counselling, namely, evaluating the labour market needs of the unemployed, developing an action plan, referring/selecting participants for specific active measures.
[17] Annex II to the LMIA describes the nature of the measures and services to be provided by Quebec under the Labour Market Agreement. These measures and services fall into two broad categories: the operation of a placement service and the provision of active employment measures.
(1) The Quebec placement service
[18] The Quebec placement service is a public service comprising of two functions. The first function is the identification and matching of employment offers and demands either electronically through the Internet or otherwise by Emploi-Québec. The second function is developing labour market information including employment and population trends, economic forecasting, skills training opportunities and socio-economic profiles.
[19] In essence, under the Labour Market Agreement, what is carved out of the National Employment Service and what becomes the responsibility of Emploi-Québec in terms of its placement service are all matters related to that placement service in Quebec such as offers of employment by Quebec employers and job searches by Quebec residents (except for communications with Quebec corporations in English which remains in the hands of the National Employment Service).
[20] In terms of market information, Quebec agrees to produce information on the Quebec labour market and to participate in the National Pan-Canadian Information system related to the National Labour Market which remains the responsibility of Canada.
(2) The active employment measures provided by Quebec
[21] The active employment measures Quebec agrees to undertake under the Labour Market Agreement relate to:
(1) the preparation for employment, i.e education, training, apprenticeship and counselling in the context of an individual action plan;
(2) reinsertion of the unemployed into the labour market through financial means such as wage subsidies and moving allowances;
(3) maintenance of employment;
(4) the direct creation of employment; and
(5) stabilization of employment by taking such measures relating to seasonality and the overall economic situation.
C. THE LEGISLATION
(a) Federal legislation
(i) The Official Languages Act (OLA)
[22] The purpose of the OLA is set out in section 2 which reads:
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.
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 oeuvre 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.
[23] "Federal institution" is defined in section 3 as follows:
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,
(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 the Yukon Territory or of the Legislative Assembly or government of 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;
« _institutions fédérales_ » Les institutions du Parlement et du gouvernement du Canada, dont le Sénat, la Chambre des communes et la bibliothèque du Parlement, 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.
[24] Sections 21, 22, 25, 27 and 28 found in Part IV of the OLA read:
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.
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.
Regulatory Activities of Federal Institutions
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.
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.
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.
Pouvoir réglementaire en matière de santé ou de sécurité publiques
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.
[25] Subsections 77(1), 77(4) and 77(5) found in Part X of the OLA read:
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 or V, or in respect of section 91, may apply to the Court for a remedy under this Part.
Order of Court
(4) Where, in proceedings under subsection (1), the Court concludes that a federal institution has failed to comply with this Act, the Court may grant such remedy as it considers appropriate and just in the circumstances.
Other rights of action
(5) Nothing in this section abrogates or derogates from any right of action a person might have other than the right of action set out in this section.
(Emphasis mine)
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 ou V, ou fondée sur l'article 91 peut former un recours devant le tribunal sous le régime de la présente partie.
Ordonnance
(4) Le tribunal peut, s'il estime qu'une institution fédérale ne s'est pas conformée à la présente loi, accorder la réparation qu'il estime convenable et juste eu égard aux circonstances.
Précision
(5) Le présent article ne porte atteinte à aucun autre droit d'action.
(ii) The Employment Insurance Act (EIA)
[26] Part II of the Employment Insurance Act deals with employment benefits and the National Employment Service.
[27] The purpose of Part II is set out in section 56 which reads:
56. The purpose of this Part is to help maintain a sustainable employment insurance system through the establishment of employment benefits for insured participants and the maintenance of a national employment service.
56. La présente partie a pour objet d'aider à maintenir un régime d'assurance-emploi durable par la mise sur pied de prestations d'emploi pour les participants et par le maintien d'un service national de placement.
[28] Section 57(1) of the EIA provides that the employment benefits and support measures under Part II are to be established in accordance with the guidelines set out below while subsection 57(2) enjoins the Commission to work in concert with the governments of each province with subsection 57(3) dealing with invitations to those governments to enter into agreements. Section 57 of the EIA reads:
57. (1) Employment benefits and support measures under this Part shall be established in accordance with the following guidelines:
(a) harmonization with provincial employment initiatives to ensure that there is no unnecessary overlap or duplication;
(b) reduction of dependency on unemployment benefits by helping individuals obtain or keep employment;
(c) co-operation and partnership with other governments, employers, community-based organizations and other interested organizations;
(d) flexibility to allow significant decisions about implementation to be made at a local level;
(d.1) availability of assistance under the benefits and measures in either official language where there is significant demand for that assistance in that language;(e) commitment by persons receiving assistance under the benefits and measures to
(i) achieving the goals of the assistance,
(ii) taking primary responsibility for identifying their employment needs and locating services necessary to allow them to meet those needs, and
(iii) if appropriate, sharing the cost of the assistance; and
(f) implementation of the benefits and measures within a framework for evaluating their success in assisting persons to obtain or keep employment.
57(2) Working in concert with provincial governments
To give effect to the purpose and guidelines of this Part, the Commission shall work in concert with the government of each province in which employment benefits and support measures are to be implemented in designing the benefits and measures, determining how they are to be implemented and establishing the framework for evaluating their success.
57(3) Agreements with provinces
The Commission shall invite the government of each province to enter into agreements for the purposes of subsection (2) or any other agreements authorized by this Part. (Emphasis mine)
57. (1) Les prestations d'emploi et les mesures de soutien prévues par la présente partie doivent être mises sur pied conformément aux lignes directrices suivantes:
a) l'harmonisation des prestations d'emploi et des mesures de soutien avec les projets d'emploi provinciaux en vue d'éviter tout double emploi et tout chevauchement;
b) la réduction de la dépendance aux prestations de chômage au moyen de l'aide fournie pour obtenir ou conserver un emploi;
c) la coopération et le partenariat avec d'autres gouvernements, des employeurs, des organismes communautaires et tout autre organisme intéressé;
d) la flexibilité pour permettre que des décisions importantes relatives à la mise en oeuvre soient prises par les agents locaux;
d.1) la possibilité de recevoir de l'aide dans le cadre de prestations ou de mesures dans l'une ou l'autre des langues officielles là où l'importance de la demande le justifie;
e) l'engagement des personnes bénéficiant d'une aide au titre d'une prestation d'emploi ou d'une mesure de soucient:
(i) à s'attacher à la réalisation des objectifs visés par l'aide fournie,
(ii) à assumer la responsabilité première de déterminer leurs besoins en matière d'emploi et de trouver les services nécessaires pour les combler,
(iii) s'il y a lieu, à partager les coûts de l'aide;
f) la mise en oeuvre des prestations et des mesures selon une structure permettant d'évaluer la pertinence de l'aide fournie pour obtenir ou conserver un emploi.
57(2) Concertation avec les gouvernements provinciaux
(2) Pour mettre en oeuvre l'objet et les lignes directrices de la présente partie, la Commission doit travailler de concert avec le gouvernement de chaque province dans laquelle une prestation d'emploi ou une mesure de soutien doit être mise en oeuvre à mettre sur pied la prestation ou la mesure, à fixer les modalités de sa mise en oeuvre et à concevoir le cadre permettant d'évaluer la pertinence de l'aide qu'elle fournit aux participants.
57(3) Accords avec les provinces
(3) La Commission doit inviter le gouvernement de chaque province à conclure avec elle un accord pour l'application du paragraphe (2) ou tout autre accord prévu par la présente partie.
[29] Section 59 of Part II of the EIA speaks to the Commission establishing employment benefits. It reads:
59. Employment benefits for insured participants
The Commission may establish employment benefits to enable insured participants to obtain employment, including benefits to
(a) encourage employers to hire them;
(b) encourage them to accept employment by offering incentives such as temporary earnings supplements;(c) help them start businesses or become self-employed;
(d) provide them with employment opportunities through which they can gain work experience to improve their long-term employment prospects; and
(e) help them obtain skills for employment, ranging from basic to advanced skills.
(Emphasis mine)
59. La Commission peut mettre sur pied des prestations d'emploi en vue d'aider les participants à obtenir un emploi, notamment des prestations visant à:
a) inciter les employeurs à les engager;
b) les encourager, au moyen d'incitatifs tels que les suppléments temporaires de revenu, à accepter un emploi;
c) les aider à créer leur entreprise ou à devenir travailleurs indépendants;
d) leur fournir des occasions d'emploi qui leur permettent d'acquérir une expérience de travail en vue d'améliorer leurs possibilités de trouver un emploi durable;
e) les aider à acquérir des compétences -- de nature générale ou spécialisée -- liées à l'emploi.
[30] Section 60 concerns the National Employment Service, the duties of the Commission in that respect and in support of the National Employment Service, the Commission establishing support measures. This section reads:
60. (1) The Commission shall maintain a national employment service to provide information on employment opportunities across Canada to help workers find suitable employment and help employers find suitable workers.
Duties of the Commission
(2) The Commission shall
(a) collect information concerning employment for workers and workers seeking employment and, to the extent the Commission considers necessary, make the information available with a view to assisting workers to obtain employment for which they are suited and assisting employers to obtain workers most suitable to their needs; and
(b) ensure that in referring a worker seeking employment there will be no discrimination on a prohibited ground of discrimination within the meaning of the Canadian Human Rights Act or because of political affiliation, but nothing in this paragraph prohibits the national employment service from giving effect to
(i) any limitation, specification or preference based on a bona fide occupational requirement, or
(ii) any special program, plan or arrangement mentioned in section 16 of the Canadian Human Rights Act.
60(3) Regulations(3) The Commission may, with the approval of the Governor in Council, make regulations for the purposes of subsections (1) and (2).
Support measures
(4) In support of the national employment service, the Commission may establish support measures to support
(a) organizations that provide employment assistance services to unemployed persons;
(b) employers, employee or employer associations, community groups and communities in developing and implementing strategies for dealing with labour force adjustments and meeting human resource requirements; and
(c) research and innovative projects to identify better ways of helping persons prepare for, return to or keep employment and be productive participants in the labour force.
Limitation
(5) Support measures established under paragraph (4)(b) shall not
(a) provide assistance for employed persons unless they are facing a loss of their employment; or
(b) provide direct federal government assistance for the provision of labour market training without the agreement of the government of the province in which the assistance is provided.
(Emphasis mine)
60. (1) La Commission maintient un service national de placement fournissant de l'information sur les possibilités d'emploi au Canada en vue d'aider les travailleurs à trouver un emploi convenable et les employeurs à trouver des travailleurs répondant à leurs besoins.
60(2) Fonctions
(2) La Commission doit:
a) recueillir des renseignements sur les emplois disponibles et sur les travailleurs en quête d'emploi et, dans la mesure où elle le juge nécessaire, mettre ces renseignements à la disposition des intéressés afin d'aider les travailleurs à obtenir des emplois correspondant à leurs aptitudes et les employeurs à trouver les travailleurs répondant le mieux à leurs besoins;
b) faire en sorte que les travailleurs mis en rapport avec un employeur éventuel ne soient l'objet d'aucune discrimination fondée sur des motifs de distinction illicite, au sens de la Loi canadienne sur les droits de la personne, ou sur les affiliations politiques; toutefois, le présent alinéa n'a pas pour effet d'interdire au service national de placement de donner effet:
(i) aux restrictions, conditions ou préférences fondées sur des exigences professionnelles justifiées,
(ii) aux programmes, plans ou arrangements spéciaux visés à l'article 16 de la Loi canadienne sur les droits de la personne.
60(3) Règlements
(3) La Commission peut, avec l'agrément du gouverneur en conseil, prendre des règlements pour l'application des paragraphes (1) et (2).
60(4) Mesures de soutien
(4) À l'appui du service national de placement, la Commission peut mettre sur pied des mesures de soutien ayant pour but d'aider ou de soutenir:
a) les organismes qui offrent des services d'aide à l'emploi aux chômeurs;
b) les employeurs, les associations d'employés ou d'employeurs, les organismes communautaires et les collectivités à développer et à mettre en application des stratégies permettant de faire face aux changements au sein de la population active et de satisfaire aux exigences en matière de ressources humaines;
c) la recherche et l'innovation afin de trouver de meilleures façons d'aider les personnes à devenir ou rester aptes à occuper ou à reprendre un emploi et à être des membres productifs du marché du travail.
60(5) Restrictions
(5) Les mesures prévues à l'alinéa (4)b)a:
a) ne sont pas destinées à des employés, sauf s'ils risquent de perdre leur emploi;
b) ne peuvent fournir d'aide directe du gouvernement fédéral pour de la formation liée au marché du travail sans l'accord du gouvernement de la province intéressée.
[31] Section 61 of the EIA provides that the Commission may, in accordance with terms and conditions approved by Treasury Board, provide financial assistance for the purpose of implementing employment benefits and support measures.
[32] Sections 62 and 63 deal with agreements which the Commission may enter into. Those provisions read:
62. The Commission may, with the approval of the Minister, enter into an agreement or arrangement for the administration of employment benefits or support measures on its behalf by a department, board or agency of the Government of Canada, another government or government agency in Canada or any other public or private organization.
Agreements for paying costs of similar benefits and measures
63. The Commission may, with the approval of the Minister, enter into an agreement with a government or government agency in Canada or any other public or private organization to provide for the payment of contributions for all or a portion of
(a) any costs of benefits or measures provided by the government, government agency or organization that are similar to employment benefits or support measures under this Part and are consistent with the purpose and guidelines of this Part; and
(b) any administration costs that the government, government agency or organization incurs in providing the benefits or measures.
(Emphasis mine)
62. La Commission peut, avec l'approbation du ministre, conclure un accord ou un arrangement avec un ministère ou organisme du gouvernement du Canada, un gouvernement ou un organisme public canadien ou tout autre organisme pour qu'il administre une prestation d'emploi ou une mesure de soutien pour son compte.
63 Accords de contribution relatifs à des prestations ou des mesures similaires
63. La Commission peut, avec l'approbation du ministre, conclure avec un gouvernement ou un organisme public canadien, ou tout autre organisme, un accord prévoyant le versement à celui-ci d'une contribution relative à tout ou partie:
a) des frais liés à des prestations ou mesures similaires à celles prévues par la présente partie et qui correspondent à l'objet et aux lignes directrices qui y sont prévus;
b) des frais liés à l'administration de ces prestations ou mesures par ce gouvernement ou organisme.
(b) Quebec's legislation
[33] Two Quebec statutes are relevant:
(1) An Act respecting the ministère de l'Emploi et de la Solidarité and establishing the Commission des Partenaires du marché du travail
[34] Section 1 of this statute provides that the department is to be under the direction of the Minister of Employment and Solidarity appointed under the Executive Power Act.
[35] Sections 2 and 3 of that Act scope out the Minister's responsibilities. Those sections read:
2. The Minister shall instigate and coordinate state action in the areas of manpower, employment, income security and social benefits.
The actions taken by the Minister, after consulting with the other ministers concerned, in the areas of manpower and employment shall focus, in particular, on labour market information, placement, and all aspects of active labour market policy; such actions shall include the provision of public employment services.
3. The Minister shall draw up policies and measures in the areas under his authority and propose them to the Government, primarily in order to
(1) facilitate the employment of available manpower;
(2) promote the development of manpower;
(3) improve the supply of manpower and influence the demand for manpower, in order to facilitate a balance between manpower supply and demand in the labour market;
(4) ensure an acceptable standard of living for every person and every family.
The strategies and objectives in the area of manpower and employment shall be defined in collaboration with the Commission des partenaires du marché du travail.
The Minister shall see to the implementation of policies and measures and shall oversee and coordinate their application.
The Minister shall also be responsible for the administration of the Acts assigned to his responsibility, and shall exercise every other function assigned to him by the Government. [emphasis mine]
[36] Section 4 of that Act enjoins the Minister, in designing and implementing measures, to promote concerted action amongst, and the involvement of the government with employers, unions, community groups, the education and economic sectors taking into account provincial, regional and local levels and the various sectors to be coordinated and harmonized.
[37] Subsection 5(3) of that Act authorizes the Minister to enter into agreements with a government other than the Government of Quebec, a department of such government, or international organizations, including agreements with the Government of Canada concerning the implementation of manpower and employment measures.
[38] Chapter II of that Act establishes the Commission of Labour Market Partners whose function is to take part in the development of government policies and measures in the area of manpower and employment and to participate in decisions concerning the implementation and management of manpower and employment measures and programs under the authority of the Minister, in particular, as regards programming, plans of action and related operations.
[39] Section 18 of that Act spells out the priorities of the Commission of Labour Market Partners in the exercise of its functions. Section 19 indicates the criteria governing the allocation of the overall funds made available for manpower and immigration and employment measures, programs and funds which are to be determined annually by the Commission.
[40] Chapter III of that Act establishes Emploi-Québec within the Department. Emploi-Québec is constituted, as an independent unit, to supervise the implementation and the management, at the provincial, regional and local levels, of the measures and programs under the responsibility of the Minister in the areas of manpower and employment. Its mandate is also to provide public employment services. The public employment services are to include labour market information, placement and services relating to active labour market policy.
[41] Chapter IV of that Act provides for regional councils of labour market partners.
(2) An Act Respecting Income Support, Employment Assistance and Social Solidarity.
[42] I set out below the main provisions of this statute.
Title I
Employment-Assistance Measures, Programs and Services
1. This Title provides for measures, programs and services in the areas of manpower and employment to foster the economic and social autonomy of individuals and to assist individuals in their efforts to enter, re-enter or remain on the labour market.
These employment-assistance measures, programs and services focus on the components of an active labour market policy: job preparation, entry and retention as well as job stabilization and job creation.
2. To that end, the Minister of Employment and Solidarity shall offer reception, assessment and referral services. The Minister may also
(1) offer coaching services;
(2) collect labour market information, primarily for the purpose of providing information on employment opportunities to help workers find employment and help employers find suitable workers;
(3) offer placement services and, to that end, at the request of a worker seeking employment or of an employer, compile information concerning workers, employers and available employment, and, in accordance with the request and to the extent the Minister considers necessary, make the information available to the persons concerned;
(4) provide funding for courses, training programs or professional services;
(5) issue job vouchers, apprenticeship vouchers and other vouchers to be exchanged for services.
3. Employment-assistance measures, programs and services may be established in particular to
(1) support organizations that provide employment-assistance services;
(2) assist employers, employee or employer associations, community organizations and regional or local communities in developing and implementing strategies for dealing with labour force adjustments and meeting manpower requirements;
(3) facilitate improved labour market efficiency and minimize the impact of labour market restructuring;
(4) promote the development of new labour market policy instruments and management tools;
(5) support research and innovation in order to identify better ways of helping persons obtain or keep employment.
4. Within the scope of employment-assistance measures, programs and services, the Minister may offer persons financial assistance in particular to
(1) help them obtain skills for employment, ranging from basic to specific skills;
(2) encourage them to accept employment through incentives such as earning supplements;
(3) assist them in their efforts to enter, re-enter or remain on the labour market;
(4) provide them with employment opportunities through which they can gain work experience to improve their employment prospects;
(5) encourage employers to hire them.
Financial assistance may be granted, for instance, in the form of an employment-assistance allowance, the reimbursement of expenses or wage subsidies. [emphasis mine]
D. THE APPLICANT'S CASE
[43] The applicant, who is self-represented, filed an extensive 135 paragraph memorandum of fact and law in support of the reliefs sought. He also made oral argument.
[44] I take it from his written memorandum and oral argument, the main relief sought by the applicant is a declaratory judgment that the OLA applies to the Labour Market Agreement focussing, in particular, on Part IV of the OLA which is entitled "Communications with and Services to the Public" and Part X providing for a court remedy in the event of breach.
[45] The applicant's principal argument for saying the OLA applies to the Labour Market Agreement is because he argues, through it, Canada has delegated or transferred to Emploi-Québec certain administrative functions (labour market activities) vested in the Commission under the EIA or has contracted out its spending power to Quebec. That being the case, Emploi-Québec, in discharging those activities is acting on behalf of the Commission pursuant to section 25 of the OLA, which, I repeat, provides:
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.
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.
[46] I note in oral argument Mr. Lavigne said he was not challenging the validity of the EIA nor for that matter any Quebec legislation.
[47] Mr. Lavigne cites Justice Blais' recent decision in Commissioner of Official Languages, Her Majesty the Queen and Association des Juristes d'expression française de l'Ontario, [2001] F.C.T. 239. In that case, Justice Blais, on a remedy application by the Commissioner of Official Languages, pursuant to the OLA, ruled that Her Majesty the Queen in right of Canada, and specifically the Department of Justice of Canada, had failed to comply with their duties and commitments in respect of language as set out in Part IV and Part VII of the OLA in the arrangements they made with Ontario on the administration of the federal Contraventions Act and its subsidiary regulation, The Application of Provincial Laws Regulation made under the Contraventions Act.
[48]Robert Lavigne then made argument in support of the following orders or declarations formulated in the following words in his application for a remedy pursuant to section 77 of the OLA:
1) an order from t