OLDMAN DAM: ENVIRONMENTAL ASSESSMENT AND THE CONSTITUTION FEBRUARY 13, 2012
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Transcript of OLDMAN DAM: ENVIRONMENTAL ASSESSMENT AND THE CONSTITUTION FEBRUARY 13, 2012
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OLDMAN DAM: ENVIRONMENTAL
ASSESSMENT AND THE CONSTITUTION
FEBRUARY 13, 2012
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Overview
• Federal and Provincial Legislative Powers relating to the Environment
• Oldman Dam Project
• Federal Legislative Powers (EA) – Environmental Assessment and Review Process
Guidelines Order – Canadian Environmental Assessment Act – Possible EA Law Reforms (national concern
projects, sustainability assessment)
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Federal and Provincial Legislative Powers (Environment)
• “Federal patchwork superimposed on provincial carpet”
• Provincial Powers (s.92, 92A)– Property and civil rights– Matters of a merely local or private nature– Lands, mines, minerals; non-renewable
natural resources; forestry; electrical energy
– Local works and undertakings
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Federal and Provincial Legislative Powers (Environment)
• Federal Legislative Powers (s.91)– Sea coast and inland fisheries – Navigation and Shipping– Federal works and undertakings– Criminal law– Spending – Indians and lands reserved for Indians– Peace order and good government – Trade and Commerce – Taxation
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Delimiting Federal and Provincial Powers
• Interpretative Tools and Legal Principles– Exclusive vs. Concurrent Jurisdiction– Administrative vs. Legislative
Interdelegation – Interjurisdictional Immunity– Role of Territory and Ownership– Treaty Implementation
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Fisheries Powers
• R. v. Fowler – Wood debris deposited into a stream contrary to
Fisheries Act – No evidence actual harm to fish, habitat– Not within federal legislative authority
• R. v. Northwest Falling Contractors– Diesel oil - deleterious substance deposited
into waters frequented by fish– Evidence of harm to fish– Within federal authority
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Criminal Law Power
• R. v. Hydro-Quebec • PCBs released into Quebec stream by
Hydro-Quebec facility contrary to Canadian Environmental Protection Act
• Tests for valid exercise of criminal law power (RJR MacDonald):– Legitimate public purpose– Prohibition of an activity– Penalty
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Criminal Law Power
• R. v. Hydro-Quebec • Issue: does CEPA use appropriate tools to
pursue the legitimate public purpose?• Is CEPA about environmental protection or
control of toxic substances?• Laforest (majority)
– lengthy process identify toxic substances– regulatory measures to reduce, control justifiable
so long as combined with prohibitions
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Peace Order and Good Government Powers
• Anti-Inflation Reference, Crown Zellerbach, R. v. Hydro-Quebec
• Emergency Branch of POGG
• National Concern Branch of POGG– Singleness, Distinctiveness, Indivisibility
• Atomic Energy, Marine Pollution justified under POGG
• Toxic Substances not justified
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Oldman Dam Project
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Oldman Dam Project
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Oldman Dam Project
• Alberta government initiated in 1980s• Irrigation benefits to 200 farmers plus up
to 25 MW electricity • Peigan First Nations (Milton Born with a
Tooth) and Friends of the Oldman River (FORS, Martha Kostuch) opposed project
• Peigan Reserve 12 km downstream from Oldman Dam site
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Oldman Dam Environmental Effects
• Loss of riparian habitat (cottonwood forests
• Loss of cold-water trout habitat
• Mercury contamination
• Increased dust and related air pollution
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Oldman Dam Project
• Alberta prepared environmental assessment, found no significant effects
• Federal Environment Minister refused to conduct EA under EARGO although Navigable Waters Protection Act permit and Fisheries Act authorization required
• FORS launches Rafferty-style application for judicial review
• Application denied at trial, appealed successfully
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Oldman Dam Legal IssuesStatutory Validity
• Is the Guidelines Order authorized by s. 6 of the Department of the Environment Act?
• Is the Guidelines Order inconsistent with the Navigable Waters Protection Act and the Fisheries Act?
• Does the Guidelines Order apply to projects other than new federal projects?
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Oldman Dam Legal IssuesObligations of Ministers
• Is the Guidelines Order applicable to the Oldman Dam Project?
• Are the Ministers "initiating departments"?
• Is the Navigable Waters Protection Act binding on the Crown in right of Alberta?
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Applicability of the Guidelines Order
• Transport Canada decision-making authority for NWPA; DFO not decision-making authority for Fisheries Act
• No affirmative regulatory duty on DFO
• Proponents can construct dam without DFO authorization (not unlawful to build dam without authorization but if you do you may be in jeopardy
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Oldman Dam Legal IssuesConstitutional Validity
• Is the Guidelines Order so broad as to offend ss. 92 and 92A of the Constitution Act, 1867 and therefore constitutionally inapplicable to the Oldman River Dam owned by Alberta?
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Oldman Dam Analysis of Constitutional Issues
• Authority to conduct a federal assessment of a proposal?
• EA is merely a component of federal decision-making
• Distinguish between subject matter that brings feds in as decision-maker from broader range of issues to be considered in making decision
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Constitutional Limits on Issues to be Considered in Decision?
• No for straightforward projects such as rail lines. Once jurisdiction to make decision established, integrated decision can be made that takes into account how proposal affects issues with provincial jurisdiction
• Scholarly opinion divided on projects subject to a narrower federal role
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Applying Oldman Decision to CEAA
Constitutional Validity? • Is CEAA constitutionally valid?
• Does CEAA address Supreme Court’s determination that Fisheries Act creates no affirmative regulatory duty?
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Applying Oldman Decision to CEAA
Constitutional Validity? • EA required when a “federal authority”
exercises a power or performs a duty or function in respect of a “project” such as:– Acts as proponent of a project – Provides financial assistance for project – Disposes of federal lands for project– Issues a permit or licence included on Law
List regulations
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Applying Oldman Decision to CEAA Reforms
• Under any circumstances is it constitutionally valid for federal EA law to apply to project for which government has no decision-making authority?
• Constitutionallly valid for federal EA law to establish list of nationally significant projects requiring federal assessment?
• Constitutionally valid for federal law to require sustainability assessment?