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Factum Final Version (Division of Powers and 11(D)) (00077245 S.C.C. No.: 35864 IN THE SUPREME COURT OF CANADA (ON APPEAL FROM THE COURT OF APPEAL FOR BRITISH COLUMBIA) BETWEEN: RICHARD JAMES GOODWIN APPELLANT - and - BRITISH COLUMBIA (SUPERINTENDENT OF MOTOR VEHICLES) and ATTORNEY GENERAL OF BRITISH COLUMBIA RESPONDENTS - and - ATTORNEY GENERAL OF CANADA, ATTORNEY GENERAL OF ONTARIO, ATTORNEY GENERAL OF MANITOBA, ATTORNEY GENERAL OF SASKATCHEWAN, ATTORNEY GENERAL OF ALBERTA and ATTORNEY GENERAL OF QUEBEC INTERVENERS FACTUM OF APPELLANT (RICHARD JAMES GOODWIN, APPELLANT) (Pursuant to Rule 42 of the Rules of the Supreme Court of Canada) GUDMUNDSETH MICKELSON LLP SUPREME ADVOCACY LLP 2525 - 1075 West Georgia Street 340 Gilmour Street, Suite 100 Vancouver, BC V6E 3C9 Ottawa, ON K2P 0R3 Howard A. Mickelson, Q.C. Marie-France Major Shea H. Coulson Tel.: (613) 695-8855 Tel.: (604) 685-6272 Fax: (613) 695-8580 Fax: (604) 685-8434 Email: [email protected] Email: [email protected] Counsel for the Appellant, Richard James Ottawa Agents for Counsel for the Goodwin Appellant, Richard James Goodwin S.C.C. No.: 35864 IN THE SUPREME COURT OF CANADA (ON APPEAL FROM THE COURT OF APPEAL FOR BRITISH COLUMBIA) BETWEEN: RICHARD JAMES GOODWIN APPELLANT - and - BRITISH COLUMBIA (SUPERINTENDENT OF MOTOR VEHICLES) and ATTORNEY GENERAL OF BRITISH COLUMBIA RESPONDENTS AND BETWEEN: BRITISH COLUMBIA (SUPERINTENDENT OF MOTOR VEHICLES) and ATTORNEY GENERAL OF BRITISH COLUMBIA APPELLANTS - and - JAMIE ALLEN CHISHOLM RESPONDENT AND BETWEEN: BRITISH COLUMBIA (SUPERINTENDENT OF MOTOR VEHICLES) and ATTORNEY GENERAL OF BRITISH COLUMBIA APPELLANTS - and - SCOTT ROBERTS RESPONDENT AND BETWEEN: BRITISH COLUMBIA (SUPERINTENDENT OF MOTOR VEHICLES) and ATTORNEY GENERAL OF BRITISH COLUMBIA APPELLANTS - and - CAROL MARION BEAM RESPONDENT AND BETWEEN: BRITISH COLUMBIA (SUPERINTENDENT OF MOTOR VEHICLES) and ATTORNEY GENERAL OF BRITISH COLUMBIA APPELLANTS - and - RICHARD JAMES GOODWIN RESPONDENT - and - ATTORNEY GENERAL OF CANADA, ATTORNEY GENERAL OF ONTARIO, ATTORNEY GENERAL OF MANITOBA, ATTORNEY GENERAL OF SASKATCHEWAN, ATTORNEY GENERAL OF ALBERTA and ATTORNEY GENERAL OF QUEBEC INTERVENERS ATTORNEY GENERAL OF BRITISH GOWLING LAFLEUR HENDERSON LLP COLUMBIA 2600 - 160 Elgin St 1001 Douglas Street, 6th floor Ottawa, ON K1P 1C3 P.O. Box 9280 Stn Prov Govt Victoria, BC V8W 9J7 Brian A. Crane, Q.C. Tel.: (613) 233-1781 Tyna Mason Fax (613) 563-9869 Tel.: (250) 356-2747 Email: [email protected] Fax: (250) 356-9154 Counsel for the Respondents/Appellants, Ottawa Agent for Counsel for the Attorney General of British Columbia and Respondents/Appellants, Attorney General British Columbia (Superintendent of of British Columbia and British Columbia Motor Vehicles) (Superintendent of Motor Vehicles) CARR BUCHAN & COMPANY SUPREME ADVOCACY LLP 520 Comerford Street 340 Gilmour Street, Suite 100 Victoria, BC V9A 6K8 Ottawa, ON K2P 0R3 Jeremy Carr Marie-France Major Tel.: (250) 388-7571 Tel.: (613) 695-8855 Fax: (250) 388-7327 Fax: (613) 695-8580 Email: [email protected] GUDMUNDSETH MICKELSON LLP 2525 - 1075 West Georgia Street Ottawa Agent for Counsel for the Vancouver, BC V6E 3C9 Respondents, Jamie Allen Chisholm, Scott Robert and Carol Marion Beam Shea H. Coulson Tel.: (604) 685-6272 Fax: (604) 685-8434 Email: [email protected] Counsel for the Respondents, Jamie Allen Chisholm, Scott Robert and Carol Marion Beam ATTORNEY GENERAL OF CANADA Department of Justice Canada 50 0’Connor Street, Suite 500, Room 556 Ottawa, ON K2P 6L2 Robert J. Frater Tel.: (613) 670-6289 Fax: (613) 954-1920 Email: [email protected] Counsel for the Intervener, Attorney General of Canada ATTORNEY GENERAL OF ONTARIO BURKE-ROBERTSON 720 Bay Street, 4th Floor 441 MacLaren Street, Suite 200 Toronto, ON M5G 2K1 Ottawa, ON K2P 2H3 Zachary Green Robert E. Houston, Q.C. Tel.: (416) 326-4460 Tel.: (613) 236-9665 Fax: (416) 326-4015 Fax: (613) 235-4430 Email: [email protected] Email: [email protected] Counsel for the Intervener, Attorney Ottawa Agent for Counsel for the General of Ontario Intervener, Attorney General of Ontario ATTORNEY GENERAL OF MANITOBA GOWLING LAFLEUR HENDERSON LLP 1205 - 405 Broadway 2600 - 160 Elgin St Winnipeg, MB R3C 3L6 Ottawa, ON K1P 1C3 Heather Leonoff, Q.C. D. Lynne Watt Tel.: (204) 945-0717 Tel.: (613) 786-8695 Fax: (204) 945-0053 Fax (613) 563-9869 Email: [email protected] Email: [email protected] Counsel for the Intervener, Attorney Ottawa Agent for Counsel for the General of Manitoba Intervener, Attorney General of Manitoba GOWLING LAFLEUR HENDERSON LLP 2600 - 160 Elgin St Ottawa, ON K1P 1C3 D. Lynne Watt Tel.: (613) 786-8695 Fax (613) 563-9869 Email: [email protected] Counsel for the Intervener, Attorney General of Saskatchewan ATTORNEY GENERAL OF ALBERTA GOWLING LAFLEUR HENDERSON LLP 9833 - 109 Street 2600 - 160 Elgin St Bowker Building, 4th Floor Ottawa, ON K1P 1C3 Edmonton, AB T5K 2E8 Roderick Wiltshire D. Lynne Watt Tel.: (780) 422-7145 Tel.: (613) 786-8695 Fax: (780) 425-0307 Fax (613) 563-9869 Email: [email protected] Email: [email protected] Counsel for the Intervener, Attorney Ottawa Agent for Counsel for the General of Alberta Intervener, Attorney General of Alberta PROCUREUR GÉNÉRAL DU QUÉBEC NOËL & ASSOCIÉS 1200, route de l'Église, 2e étage 111, rue Champlain Québec, QC G1V 4M1 Gatineau, Quebec J8X 3R1 Brigitte Bussières Pierre Landry Alain Gingras Tel.: (819) 771-7393 Gilles Laporte Fax: (819) 771-5397 Tel.: (418) 643-1477 Email: [email protected] Fax: (418) 644-7030 Email: [email protected] Ottawa Agent for Counsel for the Intervener, Attorney General of Quebec Counsel for the Intervener, Attorney General of Quebec TABLE OF CONTENTS PAGE PART I – OVERVIEW AND STATEMENT OF FACTS ........................................................ 1 I. Overview .................................................................................................................................. 1 II. Statement of Facts .................................................................................................................. 1 A. The ARP Regime Was Enacted to Suppress Crime and Promote Public Order and Welfare by Replacing the Criminal Code ............................................................................... 1 B. The ARP Regime Empowers Police to Investigate and Penalize Drivers at the Side of the Road Without Accountability ........................................................................................... 6 C. The ASD is Unreliable .................................................................................................... 9 D. Adjudicative Facts ........................................................................................................ 10 III. Judicial History ................................................................................................................... 11 A. The Chambers Decision ................................................................................................ 11 B. The Decision on Appeal................................................................................................ 12 PART II – STATEMENT OF ISSUES ..................................................................................... 12 PART III – STATEMENT OF ARGUMENT.......................................................................... 12 II. The ARP Regime is Ultra Vires the province of British Columbia ...................................... 14 A. Provinces Have No Jurisdiction To Supplement or Replace the Criminal Law ........... 14 B. Practical Reality over Artificial Form: The ARP Regime Replaces the Criminal Law 19 C. The ARP Regime is Distinguishable From Predecessor Regimes ................................ 27 D. The Punitive Purpose of the ARP Regime is to Remove Procedural Rights ................ 28 III. The ARP Regime infringes s. 11(d) of the Charter and is not saved by s. 1 ....................... 29 A. An Overly Legalistic Approach to S. 11 ....................................................................... 30 B. Refining the Test for an “Offence” under S.11: A Purposive Interpretation ................ 32 C. The ARP Regime Violates s. 11(d)............................................................................... 35 D. The ARP Regime Is Not Saved by S. 1 ........................................................................ 36 PART IV – SUBMISSION ON COSTS .................................................................................... 37 PART V – ORDERS SOUGHT ................................................................................................. 37 PART VI – TABLE OF AUTHORITIES ................................................................................. 38 PART VII – STATUTORY PROVISION ................................................................................ 41 Appendix – Constitutional Question ......................................................................................... 42 1 PART I – OVERVIEW AND STATEMENT OF FACTS I. Overview 1. This is the first constitutional challenge to a new frontier of provincial legislation designed to use the civil and administrative law to replace the Criminal Code so as to remove the provincial administrative costs associated with Charter rights and thereby create more “effective” punishment. British Columbia admits that this case is a test of its desire to move forward with these “hybrid” regimes. It argues that it has near total discretion to enact these sorts of laws under its s. 92(13) jurisdiction.
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