Federal Power: Overriding Provincial Law?

can the federal government override provincial law

In Canada, the federal government and the provinces sometimes pass laws on similar subjects, which can lead to conflicts between the laws. The Canadian constitution gives the federal government power over certain areas, like aerodromes, telecommunications, and postal services, while the provinces have power over other areas, like local works, property, and civil rights. When there is a conflict between a valid provincial law and a federal law, the federal law usually takes priority and the provincial law has no effect, unless there is an exception. This is known as the doctrine of paramountcy.

Characteristics Values
Federal government's power Jurisdiction over the regulation of aerodromes, telecommunications, postal services, and the power to regulate Canada Post
Provincial government's power Jurisdiction over property and civil rights, local works and undertakings, and the power to regulate speed limits on roadways
Doctrine of paramountcy Federal law prevails in case of conflict between valid provincial and federal laws; federal government's core objective takes precedence
Section 33 of the Charter Allows Parliament or province to derogate from certain sections of the Charter, including fundamental freedoms, legal rights, and equality rights
Cooperative federalism The two levels of Canadian government should consult, communicate, and work together

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The doctrine of paramountcy

In Canadian constitutional law, the doctrine of paramountcy is a constitutional tool that helps resolve conflicts between federal and provincial laws. Under this doctrine, a provincial law that conflicts with a federal law will be inoperative to the extent of the conflict. This means that the federal legislation takes precedence over the provincial law.

The doctrine was first expressed in the Local Prohibition Case and was later described by Lord Dunedin in Grand Trunk v. Attorney General of Canada. Historically, the doctrine was interpreted strictly, and any overlap between federal and provincial laws would render the provincial law inoperative, even without a conflict. Over time, the interpretation evolved, and the doctrine is now invoked only when compliance with one law breaches the other. This "operational conflict" is interpreted broadly, using a substantive, contextual, and purposive approach.

The Supreme Court of Canada has played a significant role in shaping the modern doctrine of paramountcy. In the case of Multiple Access v. McCutcheon, the Court found that statutory duplication of insider trading laws by both levels of government did not invoke paramountcy as the court had the discretion to prevent double penalties. In Canadian Western Bank, the Court held that when the operational effects of provincial legislation conflict with federal legislation, the federal law prevails, and the conflicting part of the provincial law becomes inoperative.

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Section 91 of the Constitution

In Canada, the federal government can override a provincial law in the event of a conflict between valid provincial and federal laws. This is known as the doctrine of paramountcy, which establishes that the federal law will prevail and the provincial law will be rendered inoperative to the extent that it conflicts with the federal law.

> "to make Laws for the Peace, Order, and good Government of Canada, in relation to all Matters not coming within the Classes of Subjects by this Act assigned exclusively to the Legislatures of the Provinces."

This means that the federal Parliament has the authority to legislate on matters not explicitly assigned to the provincial legislatures. The subjects under the federal government's purview include naturalization and aliens, marriage and divorce, criminal law, and the establishment, maintenance, and management of penitentiaries.

The dynamic interplay between the federal and provincial powers is a defining feature of Canadian federalism, ensuring that every area of legislation falls under the jurisdiction of either the federal or provincial governments, or both in some cases.

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Section 33, the notwithstanding clause

Section 33 of the Canadian Charter of Rights and Freedoms is commonly referred to as the "notwithstanding clause". It is part of the Constitution of Canada and allows Parliament or provincial legislatures to temporarily override certain sections of the Charter, namely section 2 (fundamental freedoms), sections 7 to 14 (legal rights), and section 15 (equality rights). It is important to note that Section 33 does not apply to democratic rights, mobility rights, or language rights.

The purpose of the notwithstanding clause is to prevent a court from invalidating a law that violates Charter provisions relating to fundamental freedoms, legal rights, or equality rights. Provincial or federal governments can use Section 33 to shield a law from judicial invalidation on these specific grounds or to revive a law that has already been invalidated by a court. This clause reflects the hybrid character of Canadian political institutions, protecting the British tradition of parliamentary supremacy within an American-style system of written constitutional rights and strong courts.

When the Charter was being drafted, federal and provincial leaders disagreed on the inclusion of the notwithstanding clause. Supporters, including the premiers of Saskatchewan and Alberta, argued that it was a democratic safeguard against unelected judges holding too much power in interpreting and enforcing the Charter. Opponents, such as then-Prime Minister Pierre Elliott Trudeau, warned that the clause could undermine the Charter by allowing legislatures to disregard certain rights.

The notwithstanding clause has been invoked by some provincial governments but not by the federal government. Quebec, Saskatchewan, Alberta, and Ontario have used it, with varying degrees of public backlash and political impact. For example, Quebec added the clause to all laws in force in 1982 and continued to do so for new laws until 1985. In 1988, Quebec used the clause to uphold its law on the exclusive use of French on commercial signs, despite a Supreme Court ruling that it violated freedom of expression. More recently, in 2021, Ontario used the notwithstanding clause to revive a law related to free expression that had been struck down by the Ontario Superior Court.

Section 33 declarations are valid for five years and can be re-enacted if needed. However, they are subject to the general rule of interpretation against retroactive and retrospective operation, meaning that they only permit prospective derogation. This means that any attempt to give retrospective effect to an override of the Charter would render the legislation ineffective.

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Interjurisdictional immunity

In Canadian constitutional law, interjurisdictional immunity refers to the immunity of federal law from limitation by provincial law. In other words, it concerns the scope of federal power.

The doctrine of paramountcy, on the other hand, deals with the way in which federal power is exercised. It establishes that where there is a conflict between valid provincial and federal laws, the federal law will prevail and the provincial law will be rendered inoperative to the extent of the conflict. This doctrine is relevant where there is conflicting federal and provincial legislation.

Section 91 of the Constitution sets out the legislative authority of the Parliament of Canada to make laws for the peace, order and good government of Canada ("POGG") in relation to all matters not assigned exclusively to the legislatures of the provinces. Section 91 also outlines the specific powers assigned to the federal government, with the caveat that they are provided for greater certainty but "not so as to restrict the generality" of the federal government's powers.

Section 92 of the Constitution, on the other hand, states that in each province, the legislature may exclusively make laws relating to the matters enumerated within that province. For example, Section 92.8 allows provincial legislatures to pass laws to establish municipal institutions within their province.

There are several examples where the federal and provincial governments have overlapping jurisdictions, which has resulted in protracted litigation. For instance, the federal government has exclusive jurisdiction over the regulation of aerodromes, while the province has jurisdiction over property and civil rights. Similarly, the federal government has jurisdiction over postal services, while the province has jurisdiction over local works and undertakings.

In cases where there is an overlap between federal and provincial laws, the courts have interpreted that the federal law will render the provincial law inoperative only if there is an "operational incompatibility" between the laws. This means that dual compliance is possible, but the provincial law is incompatible with the purpose of the federal legislation, thus frustrating a federal purpose.

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Cooperative federalism

In a federal system, cooperative federalism, also known as marble-cake federalism, is defined as a flexible relationship between the federal and state governments, where they work together on a variety of issues and programs. It is a system where both governments share power and collaborate on overlapping functions.

The roots of cooperative federalism can be traced back to the administration of Thomas Jefferson, where the national government used land grants to support a variety of state governmental programs such as higher education, veterans' benefits, and transportation infrastructure. The Swamp Lands Acts of 1849, 1850, and 1860 are examples of this strategy. The model was expanded during Franklin D. Roosevelt's New Deal, and continued to influence social welfare policies after World War II and into the 1960s.

In cooperative federalism, the national government encourages local implementation of federal programs by providing significant matching funds. This can be seen in welfare programs such as medical assistance, where the federal government provides funds on a matching basis, subject to federal mandatory regulations. The Clean Water Act and the Occupational Safety and Health Act of 1970 are other examples of cooperative federalism, where a partnership between states and the federal government is formed to achieve shared objectives.

Frequently asked questions

In Canadian constitutional law, the doctrine of paramountcy establishes that when there is a conflict between valid provincial and federal laws, the federal law will prevail and the provincial law will be rendered inoperative to the extent that it conflicts with the federal law.

The doctrine of paramountcy dictates that where there is an inconsistency between validly enacted provincial and federal laws, the federal law will override the provincial law.

In the case of Law Society of British Columbia v. Mangat, the Court found an operational conflict between the provincial Legal Profession Act prohibiting non-lawyers from appearing in front of a judge, and the federal Immigration Act, which allowed non-lawyers to appear before the immigration tribunal.

The doctrine of paramountcy impacts the relationship between the federal and provincial governments by establishing a hierarchy in which federal laws take precedence over provincial laws in the event of a conflict. This can lead to protracted litigation and political debates over the appropriate exercise of power.

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