décision de la cour d'appel de la c.-b. sur le droit de négocier le nombre d'élèves par classe

8/9/2019 Décision de la Cour d'appel de la C.-B. sur le droit de négocier le nombre d'élèves par classe

1/89

COURT OF APPEAL FOR BRITISH COLUMBIA

Citation: British Columbia Teachers’ Federation v. British Columbia,

2015 BCCA 184

Date: 20150430

Docket: CA41560

Between:

The British Columbia Teachers’ Federatio! o behal" o" allMembers o" the British Columbia Teachers’ Federatio

Respondent

(Plaintiff

And

Her Ma#est$ the %uee i Ri&ht o" the Pro'ice o" British Columbia

Appellant

(Defendant

And

The Coalitio o" British Columbia Busiesses

!nte"#eno"

Befo"e: $%e &ono'"ale C%ief )'stice Ba'*an

$%e &ono'"ale +", )'stice Donald

$%e &ono'"ale +ada* )'stice -ew'".

$%e &ono'"ale +ada* )'stice /a'nde"s

$%e &ono'"ale +", )'stice &a""is


2/89

n appeal f"o*: An o"de" of t%e /'p"e*e Co'"t of B"itis% Col'*ia dated)an'a". 2 2014 (British Columbia Teachers’ Federation v. British Columbia

2014 BC/C 121 anco'#e" Docket -o, /124584

Co'nsel fo" t%e Appellant: , &o"s*an ,C,

, Ross

, #ans

Co'nsel fo" t%e Respondent: ), Ro7e"s ,C,

/, Ro7e"s

A, +e""itt

D, +acDonald

Co'nsel fo" t%e !nte"#eno": , 9i%ak

Place and Date of &ea"in7: anco'#e" B"itis% Col'*ia

ctoe" 14 15 16 2014

9"itten /'*issions Recei#ed: )an'a". 26 e"'a". 6 11 2015

Place and Date of )'d7*ent: anco'#e" B"itis% Col'*ia

Ap"il 30 2015

(ritte Reasos b$)


3/89

$%e &ono'"ale C%ief )'stice Ba'*an and $%e &ono'"ale +", )'stice &a""is

Cocurred i b$)

$%e &ono'"ale +ada* )'stice -ew'".

$%e &ono'"ale +ada* )'stice /a'nde"s

*isseti& Reasos b$)

$%e &ono'"ale +", )'stice Donald (pa7e 81 pa"a, 25


4/89

Table o" Cotets

REASO+S FOR ,U*-ME+T OF THE HO+OURABLE CHIEF ,USTICE BAUMA+

A+* MR. ,USTICE HARRIS)

I+TRO*UCTIO+

O/ER/IE( A+* SUMMAR0

CO+SULTATIO+S LEA*I+- TO BILL 11

2. Are 3re4le&islati'e cosultatios rele'at at the i"ri&emet sta&e o" thecostitutioal aal$sis i s. 15d6 cases7

(a $"ial ;'d7e


5/89

1. Cooli& o"" 3eriod

ASSOCIATE* RE-ULATIO+S

2. Leari& Im3ro'emet Fud

1. Class Si;e ad Com3esatio Re&ulatio

9. *iscussio

CO+CLUSIO+ O+ THE BILL 11 ISSUES

BILL 1: ISSUES

FI+AL CO+CLUSIO+

*ISSE+TI+- REASO+S FOR ,U*-ME+T OF THE HO+OURABLE MR. ,USTICE

*O+AL*)

I+TRO*UCTIO+

THE HEALTH SERVICES TEST A+* PRE4LE-ISLATI/E CO+SULTATIO+

The Trial ,ud&e’s Fidi&s o Substatial Iter"erece

THE *ISPUTE BET(EE+ BCTF A+* THE PRO/I+CE

THE IMPORTA+CE OF *EFERE+CE TO THE TRIAL ,U*-E’S FI+*I+-S OF FACT

THE TEST FOR -OO* FAITH (AS CORRECTL0 LAI* OUT B0 THE SUPREMECOURT OF CA+A*A I+ HEALTH SERVICES A+* FRASER

THE TRIAL ,U*-E’S FI+*I+-S OF BA* FAITH

The Pro'ice’s Positio (as Based o Fallac$

The Pro'ice Closed Its Mid to Alterati'es

The Trial ,ud&e’s Cosideratio o" the E'idece

Associated Re&ulatios

Coclusio o -ood Faith ad the Pro'ice’s s. 15d6 Breach

SECTIO+ 2 A+AL0SIS

Pressi& ad Substatial Ob#ecti'e ad Ratioal Coectio

Miimal Im3airmet

http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913913http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913913http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913914http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913915http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913915http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913916http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913916http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913917http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913917http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913918http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913919http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913920http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913922http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913923http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913923http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913923http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913924http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913925http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913926http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913927http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913927http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913927http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913927http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913927http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913928http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913929http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913930http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913931http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913932http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913933http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913934http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913935http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913936http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913913http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913914http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913915http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913916http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913917http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913918http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913919http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913920http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913922http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913923http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913924http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913925http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913926http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913927http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913927http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913928http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913929http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913930http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913931http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913932http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913933http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913934http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913935http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913936


6/89

REME*0

CO+CLUSIO+

Summary:

The trial judge held that certain sections of the Education Improvement Act, .B.C.!"#!, c. $, unjustifiabl% infringed teachers’ freedom of association under s. !&d' of the

Charter. This holding (as based on t(o main conclusions) the *rovince’s consultations(ith the BCTF before the legislation (as enacted (ere irrelevant to its constitutionalit%,and the *rovince had in an% event failed to consult in good faith. The *rovince appeals.

+eld) Appeal allo(ed &onald -.A. dissenting'.

ajorit% &per Bauman C.-.B.C., /e(bur%, aunders and +arris --.A.') The *rovince’sconsultations are relevant to the constitutionalit% of the legislation. The trial judge’s

finding that the *rovince had failed to consult in good faith (as based on errors of la( and palpable and overriding errors of fact. Bet(een the consultations and the collectivebargaining leading up to the legislation, teachers (ere afforded a meaningful process in

(hich to advance their collective aspirations. The legislation did not infringe s. !&d' of the Charter.

issent &per onald -.A.') The majorit%’s conclusion that the consultations are relevant is agreed (ith. +o(ever, the trial judge did not err in la( or fact in finding that the

*rovince had failed to consult in good faith. The legislation infringed s. !&d' and is not demonstrabl% justified under s. # of the Charter.

Reasos "or ,ud&met o" the Hoourable Chie" ,ustice Bauma ad Mr. ,usticeHarris)

Itroductio

>1? $%is appeal add"esses t%e constit'tionalit. of le7islation t%at affects t%ewo"kload and wo"kin7 conditions of teac%e"s in t%e p'lic sc%ool s.ste* in t%is

p"o#ince, nacted in 2012 t%e le7islation n'llified te"*s t%at we"e pa"t of t%e teac%e"s<collecti#e a7"ee*ent efo"e 2002 and p"o#ided t%at si*ila" te"*s co'ld not e

"ene7otiated o" incl'ded in t%ei" collecti#e a7"ee*ent 'ntil )'l. 2013, $%e le7islationalso p"o#ided fo" t%e appoint*ent of a *ediato" w%ose p"i*a". 7oal was to %elp t%e

teac%e"s< 'nion (t%e BC$ and sc%ool oa"ds ne7otiate towa"d a s%o"t@te"* collecti#e

a7"ee*ent t%at wo'ld e=pi"e at t%e end of )'ne 2013,

>2? a"lie" le7islation n'llif.in7 te"*s of t%e teac%e"s< collecti#e a7"ee*ent %adeen decla"ed 'nconstit'tional fo" inf"in7in7 teac%e"s< f"eedo* of association 'nde" s,2(d of t%e Charter , $%e ;'d7e s'spended t%e effect of %e" decision fo" 12 *ont%s toallow t%e pa"ties ti*e to add"ess its i*plications, D'"in7 t%at pe"iod teac%e"s we"econs'lted . t%e P"o#ince and teac%e"s and sc%ool oa"ds en7a7ed in collecti#e

a"7ainin7 t%"o'7% t%ei" ce"tified a"7ainin7 a7ents, $%e pa"ties did not "eac%

http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913937http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913938http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913937http://www.courts.gov.bc.ca/jdb-txt/CA/15/01/2015BCCA0184.htm#__RefHeading___Toc417913938


7/89

a7"ee*ent and teac%e"s en7a7ed in lawf'l ;o action, n t%e e=pi". of t%e 12@*ont%s'spension t%e le7islation at iss'e in t%is appeal was enacted,

>3? $%e P"o#ince "eco7nies t%at t%e le7islation affects teac%e"s< wo"kin7conditions and co#e"s s';ects on w%ic% teac%e"s %old st"on7 p"ofessional #iews,

&owe#e" it contends t%at t%e le7islation 7oes e.ond t%e s';ect *atte" of t.picalcollecti#e a7"ee*ents (s'c% as ;o sec'"it. and senio"it. "i7%ts . add"essin7 iss'esfo" w%ic% t%e P"o#ince is politicall. acco'ntale, $%ese iss'es incl'de ed'cation polic.

'nde" t%e chool Act "eso'"ce allocation wit%in t%e ed'cation po"tfolioetweenpotentiall. co*petin7 p"io"ities s'c% as class sie and co*position sala"ies tec%nolo7.

in t%e class"oo* new sc%ool 'ildin7 and seis*ic 'p7"adin7 a*on7 *an. ot%e" *atte"sas well as "eso'"ce allocation ac"oss co*petin7 7o#e"n*ent po"tfoliosfo" e=a*ple etween in#est*ents in %ospitals and t%e ope"atin7 'd7ets of sc%ools, $%eP"o#ince sa.s t%at d'"in7 t%e 12@*ont% s'spension it cons'lted wit% teac%e"s in 7ood

fait% in a *anne" t%at "espected t%ei" f"eedo* of association,

>4? $%e BC$ "o'7%t anot%e" constit'tional c%allen7e, $%e ;'d7e decla"ed t%att%is le7islation was also 'nconstit'tional fo" inf"in7in7 teac%e"s< f"eedo* of association,

$%e P"o#ince appeals,

>5? $%e ;'d7e8? 9e t'"n now to a *o"e detailed o#e"#iew and s'**a".,

O'er'ie8 ad summar$

>? !n )an'a". 2002 t%e Education ervices Collective Agreement Act /,B,C,2002 c, 1 (EECAAF and t%e *ublic Education Fle0ibilit% and Choice Act /,B,C, 2002c, 3 (E*EFCAF (collecti#el. EBill 28F we"e enacted, Bill 28 decla"ed #oid ce"tain te"*sof t%e e=pi"ed collecti#e a7"ee*ent contin'in7 in fo"ce etween t%e B"itis% Col'*ia

$eac%e"s< ede"ation (t%e EBC$F and t%e B"itis% Col'*ia P'lic /c%ool *plo.e"s< Association (t%e EBCP/AF (t%e a7"ee*ent %ad e=pi"ed in )'ne 2001, Bill 28 also


8/89

p"o%iited t%e incl'sion of si*ila" te"*s in all f't'"e collecti#e a7"ee*ents etween t%eBC$ and t%e BCP/A, $%e BC$ was not cons'lted efo"e Bill 28 was enacted,

>10? !n +a. 2002 t%e BC$ co**enced a constit'tional c%allen7e, !t s'*ittedt%at Bill 28 'n;'stifial. inf"in7ed teac%e"s< f"eedo* of association as 7'a"anteed .

s, 2(d of t%eCanadian Charter of 1ights and Freedoms Pa"t ! of t%e Constitution Act,#23! ein7 /c%ed'le B to t%e Canada Act #23! (G,, 182 c, 11,

>11? B. consent t%e action was %eld in ae.ance fo" se#e"al .ea"s as a si*ila" constit'tional c%allen7e wo'nd its wa. 'p to t%e /'p"e*e Co'"t of Canada (+ealth

ervices and upport 4 Facilities ubsector Bargaining Assn. v. British Columbia 200/CC 2, !n )'ne 2006 t%e BC$ and t%e BCP/A a7"eed to a new fi#[email protected]" collecti#e

a7"ee*ent,

>12? n 13 Ap"il 2011 in "easons fo" ;'d7*ent inde=ed as 2011 BC/C 46 (t%eEBill 28 DecisionF +ada* )'stice H"iffin %eld t%at Bill 28 inf"in7ed teac%e"s< f"eedo* of association in two wa.s: fi"st . decla"in7 #oid ce"tain te"*s of t%e collecti#e a7"ee*ent

t%en in fo"ceI and second . effecti#el. p"o%iitin7 collecti#e a"7ainin7 on t%e s';ect*atte" of t%ose te"*s in t%e f't'"e, /%e fo'nd t%at t%is inf"in7e*ent was not

de*onst"al. ;'stified 'nde" s, 1 of t%e Charter , /%e decla"ed ce"tain sections of Bill 28to e 'nconstit'tional and in#alid alt%o'7% s%e s'spended %e" decla"ation of in#alidit.fo" one .ea" to allow t%e P"o#ince of B"itis% Col'*ia (Et%e P"o#inceF ti*e to add"ess

t%e "epe"c'ssions of t%e decision and conside" "e*edial le7islation, $%e P"o#ince c%osenot to appeal,

>13? !n t%e .ea" t%at followed t%e P"o#ince and t%e BC$ disc'ssed t%ei*plications of t%e Bill 28 Decision and t%e BCP/A and t%e BC$ en7a7ed in

collecti#e a"7ainin7, $%ei" collecti#e a7"ee*ent *ade in 2006 e=pi"ed on 30 )'ne

2011 (t%o'7% it p"o#ided t%at its te"*s wo'ld "e*ain in effect 'ntil a new a7"ee*ent was"eac%ed, $%e disc'ssions and collecti#e a"7ainin7 did not lead to a new a7"ee*entno" did t%e. "esol#e t%e iss'es a"isin7 f"o* t%e Bill 28 Decision wit%in t%e [email protected]"

s'spension of t%e decla"ation of in#alidit., n 14 Ap"il 2012 new le7islation ca*e intofo"ce t%e Education Improvement Act /,B,C, 2012 c, 3 (EBill 22F,

>14? $%is appeal add"esses t%e constit'tionalit. of Bill 22,

>15? ike Bill 28 Bill 22 decla"ed #oid e#e". te"* of t%e e=pi"ed collecti#ea7"ee*ent etween t%e BCP/A and t%e BC$ w%ic% %ad t%e effect of:

•

"est"ictin7 o" "e7'latin7 a sc%ool oa"d


9/89

• "est"ictin7 o" "e7'latin7 a sc%ool oa"d1? $%e BC$ c%allen7ed t%e constit'tionalit. of Bill 22 in two p"oceedin7s, i"st itapplied in t%e Bill 28 action fo" da*a7es and o"de"s st"ikin7 down ce"tain p"o#isions of

Bill 22, ($%e BC$ also applied fo" additional "e*edies in "espect of Bill 28, /econd in"esponse to t%e P"o#ince


10/89

Co*inin7 %e" findin7s ao't Bill 28 and Bill 22 t%e ;'d7e decla"ed t%at t%e Deleted$e"*s we"e "et"oacti#el. "esto"ed f"o* 1 )'l. 2002 to p"esent, /%e also awa"ded

J2 *illion to t%e BC$ as s, 24(1 Charter da*a7es,

>22? At t%e co"e of t%e ;'d7e25? !n t%e fi"st alte"nati#e s%e fo'nd t%at onl. cons'ltations akin to e*plo.e"@e*plo.ee a"7ainin7 co'ld possil. e "ele#ant to w%et%e" Bill 22 inf"in7ed teac%e"s<f"eedo* of association, $%e P"o#ince wo'ld %a#e to s%ow it %ad acted as e*plo.e" in

cons'ltin7 t%e BC$, &owe#e" t%e ;'d7e fo'nd t%e P"o#ince %ad not cons'lted ase*plo.e", $%'s in t%e fi"st alte"nati#e its cons'ltations wit% t%e BC$ we"e i""ele#ant to

w%et%e" teac%e"s< constit'tional "i7%ts 'nde" s, 2(d of t%e Charter we"e inf"in7ed,

>26? !n t%e second alte"nati#e t%e t"ial ;'d7e ass'*ed t%at cons'ltations . t%e

P"o#ince wit% t%e BC$ co'ld e "ele#ant to w%et%e" Bill 22 inf"in7ed teac%e"s< f"eedo*of association, &owe#e" s%e concl'ded t%e P"o#ince %ad not cons'lted in 7ood fait%,

>2? $%e t"ial ;'d7e also "e;ected t%e a"7'*ent t%at Bill 22 was *ate"iall. diffe"entf"o* Bill 28 eca'se t%e effecti#e p"o%iition on collecti#e a"7ainin7 ao't t%e Affected$opics in Bill 22 applied onl. 'ntil )'ne 2013 w%e"eas t%e effecti#e p"o%iition in Bill 28

%ad een indefinite,

>28? n appeal t%e P"o#ince s'*its t%at t%e t"ial ;'d7e *isinte"p"eted t%e ;'"isp"'dence of t%e /'p"e*e Co'"t of Canada on f"eedo* of association in t%e lao'"

"elations conte=t, !t contends (A,, penin7 /tate*ent:

!n a wo"kplace conte=t s, 2(d p"otects t%e "i7%t of e*plo.ees to a *eanin7f'l p"ocessto associate to *ake collecti#e "ep"esentations on e*plo.*ent *atte"s and to %a#et%ose "ep"esentations conside"ed in 7ood fait%, /ection 2(d p"otects a p"ocess of

association not its o'tco*eI s, 2(d does not *andate a pa"tic'la" *odel of associationIs, 2(d does not 7i#e constit'tional p"otection to concl'ded collecti#e a7"ee*ent te"*s,

K


11/89

!n cont"ast t%e ;'d7*ent 'nde" appeal entitles *e*e"s of t%e BC$ to t%e s'stanti#eo'tco*e so'7%t in a"7ainin7I it constit'tionall. *andates a 5agner Act *odel of collecti#e a"7ainin7I and it acco"ds constit'tional stat's to cont"act'al te"*s in ane=pi"ed collecti#e a7"ee*ent, $%e anal.sis cannot e "econciled wit% cont"ollin7

a't%o"it. f"o* t%e /'p"e*e Co'"t of Canada,

>2? $%e BC$ of co'"se "esists t%ese concl'sions and defends t%e t"ial ;'d7e32? !t is 'sef'l to "e*e*e" w%at t%is appeal does and does not in#ol#e, $%e iss'e%e"e is w%et%e" le7islation w%ic% inte"fe"ed wit% te"*s of a collecti#e a7"ee*ent and

te*po"a"il. p"o%iited collecti#e a"7ainin7 on ce"tain topics s'stantiall. inte"fe"ed wit%wo"ke"s< f"eedo* of association, /i*ila" iss'es we"e add"essed . t%e /'p"e*e Co'"tof Canada in +ealth ervices and eredith v. Canada &Attorne% 6eneral' 2015 /CC 2,

>33? $%e"e is no alle7ation in t%is appeal t%at t%e stat'to". "e7i*e fo" collecti#ea"7ainin7 etween t%e BC$ and t%e BCP/A is itself constit'tionall. deficient, !ss'es

of t%at kind we"e at stake in 7ntario &Attorne% 6eneral' v. Fraser, 2011 /CC 20 (fo"

a7"ic'lt'"al wo"ke"s and ounted *olice Association of 7ntario v. Canada &Attorne% 6eneral' 2015 /CC 1 (E*A7F (fo" RC+P e*plo.ees, as8atche(an Federation of 9abour v. as8atche(an 2015 /CC 4 (EF9F dealt wit% a so*ew%at diffe"ent t.pe of

st"'ct'"al iss'e,

>34? Fraser *A7 and F9 offe" li*ited assistance in answe"in7 t%e 'estionefo"e 's, As we see t%e *atte" t%e "esol'tion of t%is appeal t'"ns p"incipall. on t%e

co""ect inte"p"etation of +ealth ervices and eredith t%e two decisions di"ectl.en7a7in7 le7islati#e inte"fe"ence wit% collecti#e a7"ee*ents,

>35? 9e acknowled7e t%at t%e task facin7 t%e t"ial ;'d7e was a diffic'lt one since it

"e'i"ed %e" to appl. t%e #e". 7ene"al p"inciples a"tic'lated in +ealth ervices to adiffe"ent fact'al conte=t, Fraser was also efo"e %e" 't s%e did not %a#e t%e enefitof eredith (no" *A7 and F9, As will eco*e clea" o'" inte"p"etation of +ealth

ervices infl'enced . o'" "eadin7 of eredith, diffe"s f"o* t%e t"ial ;'d7e


12/89

Co'"t of Canada w%ic% e*p%asie t%e i*po"tance to t%e inf"in7e*ent anal.sis of t%ep"ocess . w%ic% c%an7es we"e *ade to t%e collecti#e a7"ee*ent, As t%e Co'"t stated

in +ealth ervices (at pa"a, 12:

#en w%e"e a *atte" is of cent"al i*po"tance to t%e associational "i7%t if t%e c%an7e

%as een *ade t%"o'7% a p"ocess of 7ood fait% cons'ltation it is 'nlikel. to %a#ead#e"sel. affected t%e e*plo.ees< "i7%t to collecti#e a"7ainin7,

>3? As a 7ene"al *atte" a le7islat'"e does not %a#e a d't. to cons'lt o#e" t%econtent of le7islation, &owe#e" if 7o#e"n*ent does c%oose to cons'lt efo"e enactin7

le7islation t%ose cons'ltations a"e an i*po"tant pa"t of t%e conte=t in w%ic% t%econstit'tionalit. of t%e le7islation *'st e assessed, Cons'ltation ass'*es pa"tic'la"

conte=t'al si7nificance in s, 2(d cases eca'se t%e p"otected "i7%t is one toa process of Eassociational collecti#e acti#it. in f'"t%e"ance of wo"kplace 7oalsF

(Fraser at pa"a, 38, $%e point is t%is, !t is i*p"ope" to f"a*e t%e iss'e as w%et%e" le7islation t%at wo'ld ot%e"wise inf"in7e s, 2(d is Esa#edF . p"io" cons'ltations in a*anne" analo7o's to t%e wa. in w%ic% le7islation *a. e ;'stified 'nde" s, 1, !f p"io" cons'ltations p"o#ided wo"ke"s wit% a *eanin7f'l oppo"t'nit. to act collecti#el. and

atte*pt to infl'ence t%ei" wo"kin7 conditions t%e le7islation *a. not inf"in7e t%eassociational "i7%t, $%e"e *a. e not%in7 t%at needs Esa#in7F,

>38? $%e t"ial ;'d7e also e""ed in %e" alte"nati#e concl'sion t%at t%e p"e@le7islati#econs'ltations co'ld e "ele#ant to t%e inf"in7e*ent anal.sis onl. if t%e P"o#ince was

actin7 as e*plo.e" w%ile cons'ltin7, !n o'" opinion t%is concl'sion "ests on an o#e"l.na""ow app"oac% to t%e constit'tional "i7%t, "eedo* of association p"otects collecti#eacti#it. taken in f'"t%e"ance of wo"kplace 7oals, /'c% acti#it. *a. occ'" in t%e conte=t

of t"aditional collecti#e a"7ainin7 wit% an e*plo.e" 't it is not li*ited to t"aditionalcollecti#e a"7ainin7, $%e ;'d7e e""ed in failin7 to "ealie t%at t%e"e a"e ot%e" wa.s in

w%ic% wo"ke"s can act collecti#el. to f'"t%e" t%ei" wo"kplace 7oals,

>3? )'st as 7o#e"n*ent *a. inte"fe"e wit% associational acti#it. e#en w%en it isnot t%e e*plo.e" 7o#e"n*ent *a. promote associational acti#it. e#en w%en it is not t%ee*plo.e", o" e=a*ple 7o#e"n*ent *i7%t p"o#ide a fo"'* o'tside t"aditional collecti#ea"7ainin7 in w%ic% wo"ke"s can *ake collecti#e "ep"esentations ao't wo"kplace 7oalsand %a#e t%ose "ep"esentations conside"ed in 7ood fait%, !n o'" #iew t%e cons'ltations

leadin7 'p to Bill 22 we"e s'c% a fo"'*,

>40? $%e t"ial ;'d7e fell into e""o" . 'nde"standin7 s, 2(d to "e'i"e e*plo.e"@e*plo.ee ne7otiations and askin7 w%et%e" t%e P"o#ince w%en cons'ltin7 acted as t%e

(di"ect o" indi"ect e*plo.e" of teac%e"s, $%is was t%e w"on7 'estion, $%e co""ect'estion was w%et%e" t%e P"o#ince p"o#ided t%e BC$ wit% a *eanin7f'l p"ocess to*ake collecti#e "ep"esentations and atte*pt to ad#ance its *e*e"s< wo"kplace 7oals,9e a7"ee t%at t%e P"o#ince is not t%e e*plo.e" of teac%e"s and was not actin7 as if itwe"e w%en cons'ltin7 wit% t%e BC$, $%e P"o#ince was actin7 in its capacit. as t%e*ake" of ed'cation polic. and c'stodian of p'lic finance, (!*po"tantl. t%e Affected

$opics enco*pass not ;'st teac%e"s< wo"kin7 conditions 't also *atte"s of ed'cationpolic. and p'lic finance, D'e to Bill 28 t%e"e was little t%e BC$ co'ld ac%ie#e .


13/89

disc'ssin7 t%e Affected $opics wit% t%e BCP/A at t%e collecti#e a"7ainin7 tale L 'tt%e BC$ co'ld 'sef'll. disc'ss t%e Affected $opics wit% t%e P"o#ince at t%e

cons'ltation tale, $%'s e#en t%o'7% t%e P"o#ince is not t%e e*plo.e" of teac%e"s t%econs'ltations e=panded and en"ic%ed t%e p"ocess t%"o'7% w%ic% teac%e"s co'ld *akecollecti#e "ep"esentations ao't t%ei" wo"kin7 conditions (ass'*in7 t%e P"o#ince was

p"epa"ed to cons'lt in 7ood fait%,

>41? inall. t%e t"ial ;'d7e e""ed in %e" anal.sis of t%e p"inciples t%at dete"*inew%et%e" a pa"t. is cons'ltin7 in 7ood fait% fo" t%e p'"poses of s, 2(d, &e" concl'siont%at t%e P"o#ince was not cons'ltin7 in 7ood fait% followed la"7el. f"o* %e" sc"'tin. of

t%e fact'al asis inte"nal lo7ic and o#e"all s'stanti#e "easonaleness of t%e P"o#ince42? !n s'**a". we conside" t%e t"ial ;'d7e did not p"ope"l. wei7% t%e f'llconte=t'al and p"actical "ealities of t%e "elations%ip etween t%e P"o#ince t%e BCP/A

and t%e BC$ as "e'i"ed . +ealth ervices and eredith, $%e"e a"e fi#e p"i*a".conte=t'al facto"s ea"in7 on t%e s, 2(d inf"in7e*ent anal.sis, i"st Bill 22 was enacted

afte" cons'ltations etween t%e P"o#ince and t%e BC$ t%at 7a#e t%e BC$ a*eanin7f'l oppo"t'nit. to *ake "ep"esentations ao't %ow t%e P"o#ince co'ld ac%ie#e

its ed'cation polic. o;ecti#es incl'din7 its o;ecti#es ao't t%e Affected $opics wit%o't"eso"tin7 to le7islation like Bill 28, $%e P"o#ince was p"epa"ed to conside" s'c%

"ep"esentations and ad;'st its p"oposals in li7%t of t%e*, /econd t%e Affected $opicsco#e" not onl. wo"kin7 conditions 't *atte"s of ed'cation polic., $%is is di"ectl.

"ele#ant to t%e inf"in7e*ent anal.sis and is not si*pl. a *atte" fo" s, 1, $%i"d Bill 22was enacted afte" t%e t"aditional collecti#e a"7ainin7 etween t%e BC$ and t%e

BCP/A %ad failed to p"od'ce a new collecti#e a7"ee*ent (to "eplace t%e one t%at %ade=pi"ed in )'ne 2011 and in t%e face of t%e Ap"il 2012 deadline to add"ess t%e Bill 28Decision, !t is si7nificant t%at Bill 22 anticipated *ediation in an effo"t to "eac% a new

collecti#e a7"ee*ent, o'"t% Bill 22 decla"ed t%e Deleted $e"*s to e #oid andeffecti#el. p"o%iited t"aditional collecti#e a"7ainin7 ('t not cons'ltations on t%e

Affected $opics fo" w%at was anticipated to e one a"7ainin7 "o'nd, ift% two"e7'lations enacted at t%e sa*e ti*e as Bill 22 p"o#ided an oppo"t'nit. fo" f't'"e

cons'ltations wit% teac%e"s o#e" so*e of t%e Affected $opics t%e"e. *iti7atin7 t%ead#e"se conse'ences of t%e te*po"a". p"o%iition on t"aditional collecti#e a"7ainin7

on t%ose topics, $akin7 all of t%ese conte=t'al facto"s into acco'nt we concl'de t%at Bill22 did not s'stantiall. inte"fe"e wit% teac%e"s< s, 2(d f"eedo* to associate and *akecollecti#e "ep"esentations t%"o'7% t%e BC$ in f'"t%e"ance of t%ei" s%a"ed wo"kplace

7oals,


14/89

>43? 9it% "espect to t%e Bill 28 iss'es we concl'de t%e t"ial ;'d7e e""ed in %oldin7t%at eca'se Bill 28 was "epealed on 14 Ap"il 2012 "at%e" t%an t%e da. efo"e Bill 28was in#alid "et"oacti#e to )'l. 2002, $%is %oldin7 was *ade per incuriam, $%e leadin7a't%o"it. of t%e /'p"e*e Co'"t of Canada was not "efe""ed to and it *ilitates a7ainst a

"et"oacti#e decla"ation in t%ese ci"c'*stances,

>44? Befo"e t'"nin7 to a *o"e detailed anal.sis a s%o"t desc"iption of t%e "ele#antle7al "elations%ips and o'" te"*inolo7. is in o"de",

>45? !n B"itis% Col'*ia teac%e"s a"e e*plo.ed . sc%ool oa"ds, $%e P"o#ince isnot t%ei" di"ect indi"ect o" de facto e*plo.e",

>46? $%e BC$ is a fede"ation of local teac%e"s< associations, !t is dee*ed . s, 6of t%e *ublic Education 9abour 1elations Act R,/,B,C, 16 c, 382 (E*E91AF to e

t%e ce"tified a"7ainin7 a7ent fo" all teac%e"s in t%e p'lic sc%ool s.ste*,

>4? $%e BC$ en7a7es in p"o#ince@wide collecti#e a"7ainin7 wit% t%e BCP/A

w%ic% is dee*ed . s, 4 of *E91A to e t%e ce"tified a"7ainin7 a7ent fo" sc%ool oa"de*plo.e"s, $%e P"o#ince does not di"ectl. pa"ticipate in t%e collecti#e a"7ainin7 't it

e=e"ts infl'ence . 7i#in7 a"7ainin7 *andates to t%e BCP/A,

>48? !n t%ese "easons fo" ;'d7*ent we 'se Ecollecti#e a"7ainin7F to "efe" tot"aditional collecti#e a"7ainin7 etween ce"tified a"7ainin7 a7ents as defined and

7o#e"ned . t%e 9abour 1elations Code, R,/,B,C, 16 c, 244 (t%e ECodeF. 9e 'seEcons'ltationsF o" Ep"e@le7islati#e cons'ltationsF to "efe" to a p"ocess . w%ic%

7o#e"n*ent disc'sses ne7otiates o" cons'lts wit% wo"ke"s w%o will e affected .le7islation desi7ned to ad#ance 7o#e"n*ental polic. o;ecti#es, 9e "eco7nie t%at t%e

/'p"e*e Co'"t of Canada %as 'sed Ecollecti#e a"7ainin7F to "efe" loosel. to ot% t.pes

of p"ocesses, !n o'" #iew t%is 'sa7e "eflects t%e fact t%at ot% t.pes of p"ocesses a"ecapale of satisf.in7 t%e "e'i"e*ents of s, 2(d, -onet%eless we p"efe" to *aintain an

anal.tical distinction fo" t%e p'"poses of t%is appeal,

Cosultatios leadi& to Bill 11

2. Are 3re4le&islati'e cosultatios rele'at at the i"ri&emet sta&e o" thecostitutioal aal$sis i s. 15d6 cases7

>4? !s t%e e=istence of a *eanin7f'l p"ocess fo" e*plo.ees to *ake collecti#e"ep"esentations and %a#e t%e* conside"ed in 7ood fait% "ele#ant to w%et%e" s'se'entle7islation passed in t%e asence of a7"ee*ent inte"fe"es wit% t%ei" s, 2(d f"eedo* of associationM $%e t"ial ;'d7e concl'ded it was not 't in o'" opinion t%e ;'"isp"'dence of t%e /'p"e*e Co'"t of Canada pa"tic'la"l. +ealth ervices and eredith estalis%es

t%at it is,

(a) Trial judge’s reasoning

>50? $%e t"ial ;'d7e foc'sed %e" anal.sis on +ealth ervices w%ic% in#ol#ed t%e#alidit. of le7islation enacted . t%e B"itis% Col'*ia e7islat'"e in 2002 as pa"t of a


15/89

le7islati#e packa7e w%ic% also incl'ded Bill 28, ike Bill 28 t%e le7islation i*p'7nedin +ealth ervices was enacted wit%o't an. p"io" cons'ltations o" ne7otiation wit% t%e

'nions, !t n'llified i*po"tant te"*s of t%e collecti#e a7"ee*ent and p"o%iited t%eincl'sion of si*ila" te"*s in f't'"e collecti#e a7"ee*ents, $%ose te"*s affected *atte"ss'c% as cont"actin7 o't la.offs and '*pin7 eac% of w%ic% *a. e c%a"acte"ied as

t"aditional collecti#e a"7ainin7 *atte"s en7a7in7 and p"otectin7 econo*ic inte"estsdi"ectl. connected to ;o sec'"it. enefits and wa7es,

>51? $%e ;'d7e noted t%at t%e Co'"t in +ealth ervices stated t%at onl. Es'stantialinte"fe"enceF wit% associational acti#ities a*o'nts to an inf"in7e*ent of s, 2(d (+ealthervices at pa"a, 0, /%e ose"#ed t%at +ealth ervices set o't a two@step in'i". fo"

dete"*inin7 w%et%e" le7islation o" 7o#e"n*ent cond'ct a*o'nts to a s'stantialinte"fe"ence (at pa"as, 52@53:

$%e fi"st step "e'i"ed conside"ation of t%e i*po"tance of t%e *atte" to t%e collecti#eacti#it. and t%e second step "e'i"ed conside"ation of t%e E*anne"F o" Ep"ocessF in

w%ic% t%e 7o#e"n*ent *eas'"e was taken,

9it% "espect to t%e second step t%e Co'"t in +ealth ervices said t%is:

a if t%e c%an7es to'c% on collecti#e a"7ainin7 't Ep"ese"#e a p"ocess of cons'ltation and 7ood fait% ne7otiationF t%en s, 2(d will not e #iolated (at pa"as, 3@

4I

t%is second in'i". asks Edoes t%e le7islati#e *eas'"e o" 7o#e"n*ent cond'ct iniss'e "espect t%e f'nda*ental p"ecept of collecti#e a"7ainin7 L t%e d't. to cons'lt and

ne7otiate in 7ood fait%MF (pa"a, I

c if t%e c%an7e %as een *ade t%"o'7% a p"ocess of 7ood fait% cons'ltation it is'nlikel. to %a#e ad#e"sel. affected t%e e*plo.eesN "i7%t to collecti#e a"7ainin7 (pa"a,12I

d one is to conside" Et%e *anne" in w%ic% t%e 7o#e"n*ent *eas'"e isacco*plis%ed, !*po"tant c%an7es effected t%"o'7% a p"ocess of 7ood fait% ne7otiation

*a. not #iolate s, 2(d, K nl. w%e"e t%e *atte" is ot% i*po"tant to t%e p"ocess of collecti#e a"7ainin7 and %as een i*posed in #iolation of t%e d't. of 7ood fait%

ne7otiation will s, 2(d e "eac%edF (pa"a, 10,

>52? $%e ;'d7e stated t%at t%e Co'"t in +ealth ervices E"aised t%e possiilit.F t%atp"e@le7islati#e cons'ltations co'ld e "ele#ant to t%e inf"in7e*ent anal.sis 't left it

'nclea" and a*i7'o's as to w%en p"ecisel. t%is wo'ld e t%e case (at pa"as, 55@564, /%e noted t%at w%en t%e Co'"t conside"ed t%e facts it did not "efe" to t%e lack of

p"e@le7islati#e cons'ltations (at pa"a, 5,

>53? $'"nin7 to Fraser w%e"e t%e clai*ants we"e p"i#ate secto" a7"ic'lt'"alwo"ke"s t%e ;'d7e stated t%e Co'"t Edid not *ention an.t%in7 ao't p"io" cons'ltation

potentiall. c'"in7 s'se'ent le7islation f"o* its s'stantial inte"fe"ence wit% f"eedo* of associationF (at pa"a, 66,


16/89

>54? $%e ;'d7e t%en conside"ed t%e Co'"t56? i"st to concl'de t%at p"e@le7islati#e cons'ltations a"e i""ele#ant at t%einf"in7e*ent sta7e is to i7no"e t%e e*p%asis in +ealth ervices on t%e p"ocess . w%ic%

7o#e"n*ent *akes c%an7es to a collecti#e a7"ee*ent,

>5? !t is i*po"tant to "e*e*e" two facts ao't +ealth ervices, $%e i*p'7nedle7islation was enacted wit%o't an. p"io" cons'ltations wit% %ealt% secto" 'nions and

wit%o't an. effo"t . t%e P"o#ince di"ectl. o" t%"o'7% t%e e*plo.e"s< ce"tified a"7ainin7a7ent to "ene7otiate t%e collecti#e a7"ee*ent in li7%t of t%e P"o#ince


17/89

and cons'ltations wit% t%ose w%o will e affected . t%e* t%is is "ele#ant to w%et%e" t%ose c%an7es a*o'nt to an inf"in7e*ent of s, 2(d (see e,7, pa"as, 2 10 12:

>G?nilate"al n'llification of ne7otiated te"*s wit%o't an. p"ocess of *eanin7f'ldisc'ssion and cons'ltation *a. also si7nificantl. 'nde"*ine t%e p"ocess of collecti#e

a"7ainin7,K

!*po"tant c%an7es effected t%"o'7% a p"ocess of 7ood fait% ne7otiation *a. not #iolates, 2(d, K nl. w%e"e t%e *atte" is ot% i*po"tant to t%e p"ocess of collecti#e

a"7ainin7 and %as een i*posed in #iolation of t%e d't. of 7ood fait% ne7otiation wills, 2(d e "eac%ed,

K

#en w%e"e a *atte" is of cent"al i*po"tance to t%e associational "i7%t if t%e c%an7e

%as een *ade t%"o'7% a p"ocess of 7ood fait% cons'ltation it is 'nlikel. to %a#ead#e"sel. affected t%e e*plo.ees< "i7%t to collecti#e a"7ainin7,

>5? +cac%lin C,),C, and eBel ), also said t%at n'llif.in7 cont"act'al te"*s E*a.F"at%e" t%an *'st inte"fe"e wit% t%e "i7%t (at pa"a, 6, !n o'" #iew t%is is in pa"t eca'se

t%e p"esence o" asence of 7ood fait% cons'ltations is "ele#ant to w%et%e" t%e"e %aseen an inf"in7e*ent,

>60? $%e "ele#ance of t%e p"ocess . w%ic% t%e i*p'7ned le7islation was enactedis also "eflected in t%ei" a"tic'lation of t%e applicale test (at pa"a, 112:

i"st does t%e *eas'"e inte"fe"e wit% collecti#e a"7ainin7 in p'"pose and effectM/econdl. if t%e *eas'"e inte"fe"es wit% collecti#e a"7ainin7 is t%e i*pact e#al'ated inte"*s of t%e *atte"s affected and t%e p"ocess . w%ic% t%e *eas'"e was i*ple*ented

si7nificant eno'7% to s'stantiall. inte"fe"e wit% t%e associational "i7%t of collecti#ea"7ainin7 so as to "eac% t%e s, 2(d "i7%t of f"eedo* of associationM

>*p%asis added,?

>61? 9e inte"p"et Fraser to e consistent wit% o'" anal.sis, As t%e t"ial ;'d7eose"#ed Fraser did not deal di"ectl. wit% t%e "ele#ance of p"e@le7islati#e cons'ltations,$%at is not s'"p"isin7 eca'se t%e case conce"ned t%e ade'ac. of a sc%e*e enacted

. nta"io to 7o#e"n collecti#e a"7ainin7 etween a7"ic'lt'"al wo"ke"s and t%ei"

e*plo.e"s, P"e@le7islati#e cons'ltations we"e not at iss'e, -onet%eless ine=plainin7 +ealth ervices t%e Co'"t "eite"ated t%at s, 2(d 7'a"antees wo"ke"s a

*eanin7f'l process t%"o'7% w%ic% t%e. can *ake collecti#e "ep"esentations inf'"t%e"ance of wo"kplace 7oals and %a#e t%ose "ep"esentations conside"ed in 7ood fait%(see e,7, pa"as, 2 3 38, Fraser confi"*s t%at s, 2(d p"otects p"ocess not o'tco*es,

$%is is enti"el. consistent wit% and indeed s'ppo"ts o'" inte"p"etation of +ealthervices.


18/89

>62? '" inte"p"etation of +ealth ervices is also s%a"ed . t%e nta"io Co'"t of Appeal, !n Association of -ustice Counsel v. Canada &Attorne% 6eneral', 2012 -CA

530 lea#e to appeal "ef'sed >2012? /,C,C,A, -o, 430 t%e i*p'7ned le7islation %ad t%eeffect of i*posin7 te"*s of a collecti#e a7"ee*ent on t%e clai*ants, !nte"p"etin7 +ealth

ervices /%a"pe ),A, fo" t%e Co'"t said (at pa"a, 41:

!n *. #iew t%e #alidit. of t%e >le7islation? *'st e assessed on t%e asis of w%et%e" att%e ti*e it was enacted t%e pa"ties %ad %ad t%e oppo"t'nit. fo" a *eanin7f'l p"ocess of

collecti#e a"7ainin7, !f t%e. %ad s, 2(d is satisfied, $%e faint %ope of f'"t%e" ne7otiations in t%e s%adow of a disp'te "esol'tion *ec%anis* not p"otected . s, 2(d

cannot e=pand o" e=tend t%e "eac% of s, 2(d e.ond its co"e 7'a"antee,

>*p%asis added,?

>63? As we see it not%in7 in t%e "ecent cases f"o* t%e /'p"e*e Co'"t of Canadacasts do't on o'" inte"p"etation of +ealth ervices, P"e@le7islati#e cons'ltations we"e

not a facto" in*A7 o" F9 ot% of w%ic% dealt wit% t%e st"'ct'"e of collecti#e

a"7ainin7 "e7i*es, $%e iss'e in *A7 as in Fraser, was w%et%e" a sepa"ate lao'" "elations sc%e*e fo" a pa"tic'la" t.pe of e*plo.ee (RC+P office"s was constit'tionall.ade'ate, $%e iss'e in F9 was w%et%e" le7islation li*itin7 t%e "i7%t to st"ike 't notot%e"wise affectin7 wo"kin7 conditions o" t%e collecti#e a7"ee*ent inf"in7ed s, 2(d,

>64? P"e@le7islati#e cons'ltation was a *ino" iss'e in eredith, !t too s'ppo"ts o'" inte"p"etation of +ealth ervices and o'" concl'sion t%e t"ial ;'d7e e""ed in t%e case at

a",

>65? !n )'ne 2008 afte" conside"ale disc'ssion wit% "ep"esentati#es of RC+Pe*plo.ees t%e $"eas'". Boa"d anno'nced sala". inc"eases of 3,32O 3,5O and 2O fo"

RC+P e*plo.ees fo" 2008 to 2010, &owe#e" as t%e 7loal financial c"isis wo"senedt%e $"eas'". Boa"d was fo"ced to "econside", !n Dece*e" 2008 it "e#ised its decision

and anno'nced sala". inc"eases of 1,5O fo" RC+P e*plo.ees fo" 2008 to 2010,*plo.ee "ep"esentati#es t%en *et t%"ee ti*es wit% $"eas'". Boa"d officials, !n +a"c%200 le7islation was enacted t%at capped sala". inc"eases ac"oss t%e p'lic secto" to

1,5O, eredith was a c%allen7e . RC+P e*plo.ees to ot% t%e $"eas'". Boa"d


19/89

$%e asence of an. "eal oppo"t'nit. to *ake "ep"esentations ao't t%e e=tent andi*pact of t%e "ollacks efo"e t%e. we"e app"o#ed . $"eas'". Boa"d %ad t%e effect of co*pletel. n'llif.in7 t%e "i7%t to a *eanin7f'l cons'ltation p"ocess and t%e"e. denied

*e*e"s t%ei" s, 2(d Charter "i7%ts,

>6? o" t%e p"oposition t%at p"e@le7islati#e cons'ltations a"e "ele#ant to t%einf"in7e*ent anal.sis Aella ), "elied 'pon +ealth ervices, /%e e=plained t%at Ew%atled t%is Co'"t in +ealth ervices to find an 'n;'stified inf"in7e*entF was t%e P"o#ince6? $%e t"ial ;'d7e also e""ed in failin7 to ade'atel. take into acco'nt t%e f'llconte=t in w%ic% Bill 22 was enacted, $%e t"ial ;'d7e


20/89

t%e %isto". of st"ike acti#it. in Canada and inte"nationall. (at pa"as, 35@50, $%esedisc'ssions we"e an i*po"tant pa"t of t%e inf"in7e*ent anal.sis ill'st"atin7 t%e

i*po"tance of conte=t,

>2? !t is %a"dl. s'"p"isin7 t%at conte=t *atte"s, $%e /'p"e*e Co'"t of Canada %as

een clea" t%at s, 2(d p"otects a "i7%t to a p"ocess t%at pe"*its e*plo.ees to *akecollecti#e "ep"esentations in f'"t%e"ance of t%ei" wo"kplace 7oals, Hi#en t%e nat'"e of t%at "i7%t it see*s 'na#oidale t%at co'"ts assessin7 le7islation *'st e=a*ine t%e

nat'"e and 'alit. of an. p"e@le7islati#e cons'ltations t%e identit. of t%e pa"ties and t%e%isto". of t%ei" a"7ainin7 "elations%ip t%e ci"c'*stances 7i#in7 "ise to an. disp'tes o" i*passes t%e effect of an. li*itations on f't'"e a"7ainin7 and *an. ot%e" facto"s, An

e=a*ination of t%e content of t%e le7islation is ce"tainl. an i*po"tant pa"t of t%eanal.sis, B't an e0clusive foc's on t%e content of t%e le7islation at t%e e=pense of t%e

ci"c'*stances in w%ic% it is enacted i*po#e"is%es t%e inf"in7e*ent anal.sis anda"tificiall. "ende"s i*po"tant facts i""ele#ant, 9e conside" t%at t%e t"ial ;'d7e e""ed .

na""owin7 %e" foc's in %e" s, 2(d anal.sis to t%e content of t%e le7islation, !t isnecessa". to take a "oad f'll. conte=t'al #iew a pe"specti#e we will disc'ss s%o"tl.,

(iii) o resum%i"e "e%o

>3? $%i"d to concl'de as t%e t"ial ;'d7e did t%at t%e inf"in7e*ent anal.sisconside"s onl. t%e content of t%e le7islation is to confe" wo"ke"s wit% a p"es'*pti#e

constit'tional #eto s';ect onl. to s, 1 o#e" an. si7nificant le7islati#e c%an7es to t%ei" wo"kin7 conditions, !f t%e /'p"e*e Co'"t of Canada %ad intended t%e effects of its

decisions to e so d"a*atic and fa"@"eac%in7 it wo'ld %a#e said so e=plicitl.,

>4? !f t%e inf"in7e*ent anal.sis e#al'ates onl. t%e content of le7islation t%en an.le7islation w%ic% si7nificantl. alte"s collecti#e a7"ee*ent te"*s necessa"il. inf"in7es s,

2(d, Ho#e"n*ent co'ld not i*ple*ent polic. c%an7es if doin7 so wo'ld 'nde"*ine acollecti#e a7"ee*ent 'nless 7o#e"n*ent co'ld *eet t%e st"in7ent s, 1 test, !n

s'stance si7nificant te"*s of collecti#e a7"ee*ents wo'ld e affo"ded constit'tionalstat's, $%is wo'ld e a d"a*atic c%an7e in t%e constit'tional st"'ct'"e of Canada,

Cont"acts %a#e ne#e" een "eco7nied as constit'tionall. p"otected,

>5? +ealth ervices did lead so*e incl'din7 P"ofesso" &o77 to concl'de t%at t%eCo'"t %ad Eele#ated collecti#e a7"ee*ents ao#e stat'tes in t%e %ie"a"c%. of laws and

7"anted t%e* #i"t'all. t%e sa*e stat's as t%e p"o#isions of t%e Charter itselfF (Pete" 9, &o77 Constitutional 9a( of Canada loose@leaf 5t% ed, s'pple*ented ($o"onto:

Ca"swell 200 c%, 44 at , Rot%stein ), conc'""in7 in Fraser endo"sed t%is

pe"ception (at pa"a, 216:

Alt%o'7% +ealth ervices p'"po"ted to constit'tionalie t%e p"ocess of collecti#ea"7ainin7 "at%e" t%an its f"'its it in fact 7"anted constit'tional p"otection to t%e

collecti#e a7"ee*ents on t%e asis t%at t%e. we"e t%e f"'its of t%at p"ocess, !n +ealthervices t%e c%allen7ed le7islation %ad t%e effect of in#alidatin7 po"tions of e=istin7

collecti#e a7"ee*ents and conse'entl. E'nde"*inin7 t%e past a"7ainin7 p"ocessest%at fo"*ed t%e asis fo" t%ese a7"ee*entsF: +ealth ervices at pa"a, 113,


21/89

>6? Rot%stein ), c"iticied t%e distinction in +ealth ervices etween t%e p"ocess of collecti#e a"7ainin7 and its s'stanti#e f"'its (at pa"a, 256, &e a"7'ed t%e distinction

was 'nwo"kale eca'se it is Ei*possile to di#o"ce t%e p"ocess of collecti#e a"7ainin7f"o* its s'stanti#e o'tco*esF (at pa"a, 263, !n s'ppo"t of t%is concl'sion %e "easoned

t%at +ealth ervices itself (at pa"a, 264:

did not "espect t%is distinction since t%e *a;o"it. 7"anted constit'tional p"otection toEsi7nificantF te"*s of t%e collecti#e a7"ee*ents at iss'e in t%at #e". case, $%e *a;o"it.

fo'nd t%at t%e c%allen7ed B,C, le7islation "eac%ed s, 2(d not ;'st . li*itin7 f't'"ea"7ainin7 't also . in#alidatin7 e=istin7 collecti#e a7"ee*ents and conse'entl.

'nde"*inin7 t%e past a"7ainin7 p"ocess t%at fo"*ed t%e asis fo" t%ese a7"ee*ents,$%e"efo"e t%e application of t%e collecti#e a"7ainin7 "i7%t in+ealth ervices %ad t%e

"es'lt of p"otectin7 t%e s'stance of t%ose a7"ee*ents,

>? &owe#e" +cac%lin C,),C, and eBel ), fo" t%e *a;o"it. in Fraser did notaccept t%at t%ese c"iticis*s we"e #alid (at pa"a, 6:

'" collea7'e a"7'es t%at +ealth ervices 7i#es constit'tional stat's to cont"actsp"i#ile7in7 t%e* o#e" stat'tes, $%e a"7'*ent is ased on t%e #iew t%at +ealthervices %olds t%at "eac% of collecti#e a7"ee*ents #iolates s, 2(d, !n fact as

disc'ssed ao#e t%is was not t%e findin7 in +ealth ervices, $%e *a;o"it. in +ealthervices %eld t%at t%e 'nilate"al n'llification of si7nificant cont"act'al te"*s K co'pled

wit% effecti#e denial of f't'"e collecti#e a"7ainin7 'nde"*ines t%e s, 2(d "i7%t toassociate not t%at lao'" cont"acts co'ld ne#e" e inte"fe"ed wit% . le7islation,

>*p%asis added,?

&e"e t%e *a;o"it. said e=plicitl. t%at le7islation can c%an7e a collecti#e a7"ee*ent

wit%o't inf"in7in7 s, 2(d, $%is co'ld not e t%e case if wo"ke"s %ad a p"es'*pti#e #etoo#e" s'c% c%an7es, 9e do not t%ink t%e scope of t%e *a;o"it.8? inall. in o'" opinion t%e t"ial ;'d7e 7a#e ins'fficient wei7%t to state*ents .t%e /'p"e*e Co'"t of Canada t%at s, 2(d p"otects a 7ene"al p"ocess (wit% ce"tainessential feat'"es "at%e" t%an a pa"tic'la" *odel of lao'" "elations, $%e"e is nop"incipled "eason t%at p"e@le7islati#e cons'ltations o'tside t%e fo"*al collecti#e

a"7ainin7 "e7i*e cannot p"o#ide a constit'tionall. s'fficient oppo"t'nit. fo" wo"ke"s to*ake collecti#e "ep"esentations in f'"t%e"ance of wo"kplace 7oals and %a#e t%ose"ep"esentations conside"ed in 7ood fait%,

>? $%e Co'"t %eld t%at no pa"tic'la" *odel is p"otected . s, 2(d *ost e=plicitl.in Fraser (e,7, at pa"a, 42. As noted t%at case in#ol#ed t%e constit'tionalit. of

le7islation p"o#idin7 li*ited collecti#e a"7ainin7 "i7%ts to a7"ic'lt'"al wo"ke"s in nta"io,$%e nta"io Co'"t of Appeal fo'nd t%e le7islation to e 'nconstit'tional eca'se it did

not p"o#ide t%e f'll panopl. of "i7%ts t.picall. fo'nd in Canadian lao'" le7islation all of


22/89

w%ic% adopts t%e E9a7ne" ActF *odel of lao'" "elations (so called fo" Gnited /tates/enato" Roe"t , 9a7ne" sponso" of t%e /ational 9abor 1elations Act of #2$: 4 /tat,44 2 G,/,C, 151@16, $%e /'p"e*e Co'"t of Canada "e#e"sed concl'din7 t%at t%e

le7islation offe"ed s'fficient p"otection to a7"ic'lt'"al wo"ke"s< f"eedo* of associatione#en t%o'7% not all of t%e 9a7ne" *odel feat'"es we"e p"esent, A7"ic'lt'"al wo"ke"s<

associations co'ld *ake "ep"esentations and %a#e t%ei" #iews conside"ed in 7ood fait%,$%at was constit'tionall. s'fficient eca'se s, 2(d p"otects onl. Ea p"ocess t%at allowse*plo.ees to *ake "ep"esentations and %a#e t%e* conside"ed in 7ood fait% .e*plo.e"s w%o in t'"n *'st en7a7e in a p"ocess of *eanin7f'l disc'ssionF (at

pa"a, 54,

>80? $%ese points we"e "epeated in *A7, ike Fraser *A7 was a c%allen7e toa pa"tic'la" lao'" "elations sc%e*e, $%e Co'"t %eld t%at t%e sepa"ate sc%e*e fo"

RC+P e*plo.ees was constit'tionall. inade'ate eca'se t%e e*plo.ee associationc"eated 'nde" t%at sc%e*e did not pe"*it e*plo.ees s'fficient c%oice conce"nin7 w%ic%

7oals to p'"s'e collecti#el. and was not s'fficientl. independent f"o* *ana7e*ent,+cac%lin C,),C, and eBel ), we"e ca"ef'l to e*p%asie fo" t%e Co'"t t%at Ec%oice andindependence can e "espected . a #a"iet. of lao'" "elations *odelsF and Ef"eedo*of association does not 7'a"antee a pa"tic'la" *odel of lao'" "elationsF (at pa"as, 84

3,

>81? $%e BC$ was 7i#en an oppo"t'nit. to *ake "ep"esentations di"ectl. to t%eP"o#ince incl'din7 ao't t%e Affected $opics w%ile collecti#e a"7ainin7 was on7oin7

wit% t%e BCP/A, !t was a *istake in o'" #iew to dis*iss t%e cons'ltations asi""ele#ant *e"el. eca'se t%e. did not take t%e sa*e fo"* as t%e collecti#e a"7ainin7,$%e cons'ltations s'pple*ented t%e collecti#e a"7ainin7 and it is t%e o#e"all p"ocess

enco*passin7 ot% fo"'*s t%at t%is Co'"t *'st conside" w%en e#al'atin7 t%econstit'tionalit. of Bill 22,

(#) Con#lusion

>82? 9e concl'de t%e t"ial ;'d7e e""ed in %oldin7 t%at t%e p"e@le7islati#econs'ltations we"e i""ele#ant at t%e inf"in7e*ent sta7e of t%e s, 2(d anal.sis, !n o'" opinion t%e ;'"isp"'dence of t%e /'p"e*e Co'"t of Canada *andates t%e opposite

concl'sion, $%e 'estion t%at *'st e answe"ed is w%et%e" Bill 22 s'stantiall.inte"fe"ed wit% teac%e"s< associational "i7%t, $%at 'estion can e answe"ed onl. .

e#al'atin7 t%e le7islation in t%e f'll conte=t in w%ic% it was enacted eca'se t%e conte=t*i7%t "e#eal t%at t%e le7islation offe"ed s'fficient p"otection o" "espect to t%e

associational "i7%tpa"tic'la"l. if affected wo"ke"s we"e cons'lted and t%e"e. 7i#en

t%e oppo"t'nit. to atte*pt to infl'ence t%e content of t%e le7islation,

1. Must 3re4le&islati'e cosultatios be 8ith &o'ermet acti& as em3lo$er7

>83? 9e now p"oceed to t%e t"ial ;'d7e


23/89

actin7 as 7o#e"n*ent e=e"cisin7 its "esponsiilit. as ed'cation polic.*ake",-onet%eless in t%e ci"c'*stances of t%is case t%e cons'ltations we"e capale of

p"o#idin7 a fo"'* in w%ic% t%e BC$ co'ld *ake collecti#e "ep"esentations inf'"t%e"ance of its wo"kplace 7oals, $%is is pa"tic'la"l. so eca'se t%e s';ect *atte" of

t%e cons'ltations was si*'ltaneo'sl. teac%e"s< wo"kin7 conditions and *atte"s of

ed'cation and fiscal polic. fo" w%ic% t%e P"o#ince is "esponsile,

>84? $o conside" t%e ;'d7e85? $%e t"ial ;'d7e dealt e=tensi#el. wit% t%e %isto". of t%e pa"ties< a"7ainin7"elations%ip (see Bill 28 Decision at pa"as, 60@123, 9%at follows is a s'**a". of so*e

of t%e pe"tinent feat'"es of t%at "elations%ip incl'din7 t%e ack7"o'nd to t%eestalis%*ent of t%e Eco@*ana7e*ent *odelF of p'lic secto" a"7ainin7 and t%e

estalis%*ent of t%e BCP/A as t%e stat'to". a"7ainin7 a7ent fo" sc%ool dist"icts,

>86? $eac%e"s 7ained t%e "i7%t to fo"* a 'nion and a"7ain collecti#el. in 18, o" t%e fi"st fi#e .ea"s a"7ainin7 was ca""ied on at t%e local le#el etween local teac%e"s<

associations and 5 local sc%ool oa"ds,

>8? !n ti*e local collecti#e a7"ee*ents we"e *ade, $%ese collecti#e a7"ee*entst.picall. incl'ded p"o#isions dealin7 wit% class sie and co*position t%at li*ited t%e

total n'*e" of st'dents and t%e n'*e" of st'dents wit% special needs w%o co'ld een"olled in an. 7i#en class, /o*e local collecti#e a7"ee*ents incl'ded p"o#isions t%atestalis%ed "atios called Enon@en"ollin7 "atiosF fo" specialist teac%e" le#els, Collecti#e

a7"ee*ents ne7otiated in t%is pe"iod contained a "an7e of p"o#isions t%at f"o* t%epe"specti#e of sc%ool oa"ds const"ained t%e ope"ational fle=iilit. of sc%ool dist"icts

and d"o#e "eso'"ce allocation decisions,

>88? $%e local a"7ainin7 st"'ct'"e c%an7ed afte" t%e p'lication of t%e 1eport of the Commission of In;uir% into the *ublic ervice and *ublic ector (icto"ia: C"own

P'lications !nc, 13 p"epa"ed . Co**issione" )'di o"in, $%e


24/89

>8? $o 7i#e t%e P"o#ince *o"e cont"ol o#e" t%e a"7ainin7 p"ocess and itso'tco*es t%e 3? !n +a. 16 t%e BC$ and t%e BCP/A concl'ded a $"ansitional Collecti#e A7"ee*ent (t%e E16 $CAF to e=pi"e on 30 )'ne 18, $%e 16 $CA contin'ed t%elocal collecti#e a7"ee*ent te"*s wit%o't p"e;'dice to t%e pa"ties< co*petin7 #iews of

t%e effect of t%e local te"*s on t%e new a"7ainin7 p"ocess,

>4? A new 't 'lti*atel. 'ns'ccessf'l "o'nd of a"7ainin7 sta"ted in 1, !n18 wit%o't t%e in#ol#e*ent of t%e BCP/A t%e P"o#ince and t%e BC$ di"ectl.

ne7otiated an A7"ee*ent in Co**ittee (t%e E18 A!CF, $%e 18 A!C ca""ied fo"wa"dt%e te"*s of t%e 16 $CA e=cept w%e"e *odified estalis%ed dist"ict@wide non@en"ollin7 "atios and incl'ded a +e*o"and'* of A7"ee*ent on @3 Class /ie,

>5? $%"o'7% t%e BCP/A as t%ei" a"7ainin7 a7ent sc%ool oa"dso#e"w%el*in7l. "e;ected t%e 18 A!C, #e" t%e BCP/A


25/89

i*passe, $%e effo"ts of a fact finde" and a *ediato" appointed to facilitate ne7otiations%ad ac%ie#ed little, $eac%e"s< ;o action was escalatin7,

>8? n 2 and 28 )an'a". 2002 ECAA (Bill 2 and *EFCA (Bill 28 we"eenacted, $%ei" co*ined effect was to:

le7islate a collecti#e a7"ee*ent to e=pi"e in )'ne 2004 (ECAA s, 2I

p"o#ide a 2,5O wa7e inc"ease in eac% .ea" of t%e a7"ee*ent (ECAA s, 2(a(iiI

decla"e #oid te"*s of t%e e=pi"ed a7"ee*ent dealin7 wit% class sie co*position andnon@en"ollin7 "atios as of 1 )'l. 2002 and p"o%iit a"7ainin7 on t%ese iss'es in t%e

f't'"e (*EFCA s, 8I

enact class sie li*its fo" @3 and a77"e7ate class sie li*its fo" all 7"ades (*EFCAs, 12I and

p"o#ide fo" t%e appoint*ent of an a"it"ato" to *ake a final and indin7 dete"*inationof w%ic% p"o#isions in t%e e=istin7 collecti#e a7"ee*ent w%ic% we"e #oid fo" inconsistenc. wit% t%e le7islation &*EFCA s, ,

>? As conte*plated . *EFCA an a"it"ato" "'led on w%ic% p"o#isions in t%ecollecti#e a7"ee*ent we"e #oid fo" inconsistenc., $%e BC$ petitioned fo" ;'dicial

"e#iew of t%e a"it"ato"100? +eanw%ile t%e BC$ co**enced t%e Bill 28 action, $%e state*ent of clai*filed in 2002 was late" a*ended to c%allen7e t%e Amendment Act as well, B. consent

t%e action "e*ained in ae.ance pendin7 t%e o'tco*e of +ealth ervices,

>101? !n ad#ance of t%e e=pi". in )'ne 2004 of t%e collecti#e a7"ee*ent i*posed. ECAA t%e BCP/A and t%e BC$ "es'*ed a"7ainin7, A7ain an i*passe was"eac%ed, Afte" p%ased st"ike action . teac%e"s and t%e appoint*ent of a fact finde"le7islation was enacted in t%e fall of 2005, $%e Teachers’ Collective Agreement Act

/,B,C, 2005 c, 2 contin'ed t%e e=istin7 collecti#e a7"ee*ent fo" a [email protected]" te"* toe=pi"e 30 )'ne 2006, !n "esponse teac%e"s e7an a nine@da. ille7al st"ike "es'ltin7 in afindin7 of conte*pt a7ainst t%e BC$ (see British Columbia *ublic chool Emplo%ers’

Association v. British Columbia Teachers’ Federation 2005 BC/C 140,

>102? +", ince Read. was appointed as an !nd'st"ial !n'i". Co**issione" tofacilitate a "et'"n to wo"k and t%e ne=t "o'nd of collecti#e a"7ainin7, n %is"eco**endation t%e P"o#ince appointed a facilitato"S*ediato" to assist t%e

ne7otiations,


26/89

>103? !n )'ne 2006 t%e BCP/A and t%e BC$ concl'ded a collecti#e a7"ee*ent fo" a fi#[email protected]" te"* to e=pi"e 30 )'ne 2011, !t incl'ded a c'*'lati#e 16O wa7e inc"ease

and a J4000 si7nin7 on's fo" eac% teac%e",

>104? Class sie co*position and staffin7 "atios we"e t%e s';ect of f'"t%e" le7islation

efo"e t%e Bill 28 action was t"ied, !n 2006 t%e Education &9earning Enhancement'tatutes Amendment Act, !""> /,B,C, 2006 c, 21 (EBill 33F a*ended t%e chool Act to p"o#ide t%at a class in 7"ades 4 to 12 co'ld e=ceed 30 st'dents o" t%"ee st'dents

wit% special needs wit% t%e consent of t%e teac%e", $%e Bill 33 a*end*ents %a#e noteen t%e s';ect of a constit'tional c%allen7e,

>105? !t will e clea" f"o* t%is %isto". t%at collecti#e a"7ainin7 o#e" t%e wo"kin7conditions of teac%e"s *et wit% diffic'lties ac%ie#ed so*e s'ccesses and conf"onted

ce"tain int"actale iss'es, $%e P"o#ince so*eti*es "eso"ted to le7islation w%encollecti#e a"7ainin7 failed to ac%ie#e collecti#e a7"ee*ents, As a "es'lt t%e collecti#e

a7"ee*ents at iss'e in t%is appeal a"e a co*ple= a*al7a* of past a7"ee*ents andcontin'ations o" a*end*ents . le7islation,

>106? $%e Bill 28 Decision was "eleased on 13 Ap"il 2011, $%e t"ial ;'d7e decla"ed t%atss, 8 and 15 of *EFCA and s, 5 of t%e Amendment Act 'n;'stifial. inf"in7ed

teac%e"s< s, 2(d "i7%ts, /%e s'spended t%e decla"ation of in#alidit. fo" 12 *ont%s toallow t%e P"o#ince ti*e to add"ess its "epe"c'ssions,

>10? ollowin7 t%e Bill 28 Decision t%e P"o#ince in#ited t%e BC$ to ente" intocons'ltations, $%e P"o#ince


27/89

t%e collecti#e a7"ee*ent lan7'a7e w%ic% %ad een deleted . Bill 28 and in t%e BC$110? !n keepin7 wit% t%e BC$111? $%e t"ial ;'d7e concl'ded t%at if 7o#e"n*ent "elies on its p"e@le7islati#e cond'ctas "espectin7 t%e p"ocess p"otected . s, 2(d notwit%standin7 s'se'ent le7islati#e

inte"fe"ence t%en its cond'ct *'st e ;'d7ed as e*plo.e" (at pa"a, 5, $%is wase=p"essed as an alte"nati#e concl'sion in t%e e#ent t%at s%e was w"on7 in %e" p"i*a".concl'sion t%at p"e@le7islati#e cons'ltations we"e i""ele#ant at t%e inf"in7e*ent sta7e of

t%e anal.sis,

>112? $%e ;'d7e "easoned t%at 7o#e"n*ent %as diffe"ent oli7ations w%en actin7 indiffe"ent capacities (at pa"a, 10:

$%e 7o#e"n*ent as le7islato" %as diffe"ent oli7ations t%an t%e 7o#e"n*ent ase*plo.e", $%e 7o#e"n*ent as e*plo.e" does %a#e a d't. to cons'lt wit% its e*plo.ees

in a p"ocess t%at allow t%e e*plo.ees a *eanin7f'l oppo"t'nit. to infl'ence t%ei" 9o"kin7 Conditions, As le7islato" it %as an oli7ation to safe7'a"d and to not inte"fe"e

wit% s, 2(d Charter "i7%ts, !t can f'lfill t%is oli7ation . t%e content of its le7islation,

>113? /%e %eld t%at in t%is case t%e P"o#ince did not and st"'ct'"all. co'ld not actas e*plo.e" (at pa"a, 16, /%e ose"#ed t%at t%e BCP/A is t%e a"7ainin7 a7ent fo"

teac%e"s< e*plo.e"s (i.e. sc%ool oa"ds and a sepa"ate entit. f"o* t%e P"o#ince (atpa"a, 11, /%e also took t%e #iew t%at in an. e#ent t%e BCP/A %ad not een anacti#e pa"ticipant at t%e cons'ltation tale (at pa"a, 1,

>114? $%e ;'d7e concl'ded t%e p"e@le7islati#e cons'ltations in t%is case did notconstit'te a Ep"ocess of en7a7e*entF pe"*ittin7 t%e BC$ Eto *ake "ep"esentations to

e*plo.e"s w%ic% e*plo.e"s *'st conside" and disc'ss in 7ood fait%F wit%in t%e*eanin7 of Fraser (at pa"a, 18 'otin7 Fraser at pa"a, 2, As a "es'lt s%e stated (at

pa"a, 181:

n t%is asis alone t%e fact t%at t%e 7o#e"n*ent was not t%e e*plo.e" and BCP/Awas not at t%e ne7otiations tale ! find t%at t%e fact and content of t%e 7o#e"n*ent*p%asis added,?


28/89

(#) Errors

>115? 9e a"e 'nale to a7"ee wit% t%e t"ial ;'d7e


29/89

>11? $%e P"o#ince p"oposed to co*ine t%e cons'ltations wit% t%e on7oin7 collecti#ea"7ainin7 at a sin7le tale at w%ic% all iss'es co'ld e can#assed and disc'ssed, $%atp"oposal was "e;ected . t%e BC$ and as a "es'lt t%e disc'ssions took place at two

sepa"ate tales, -onet%eless t%e BC$ did %a#e an oppo"t'nit. to *ake collecti#e"ep"esentations incl'din7 ao't t%e Affected $opics to t%e entities wit% t%e powe" to

infl'ence its *e*e"s< wo"kin7 conditions, &ad a7"ee*ent een "eac%ed at t%ecollecti#e a"7ainin7 tale t%e a7"ee*ent wo'ld %a#e een "eflected in a new collecti#ea7"ee*ent, &ad a7"ee*ent een "eac%ed at t%e cons'ltation tale t%e P"o#ince wo'ld

%a#e ens'"ed t%at it was inco"po"ated into a collecti#e a7"ee*ent and t%at an.necessa". le7islation was enacted,

>120? !t *i7%t e o;ected t%at d'e to t%e sepa"ation of powe"s etween t%ee=ec'ti#e and le7islati#e "anc%es of 7o#e"n*ent t%e P"o#ince ( i.e. t%e e=ec'ti#e

co'ld not %a#e ens'"ed t%at an. necessa". le7islati#e c%an7es wo'ld in fact eenacted, &owe#e" t%is o;ection o#e"looks ce"tain lon7standin7 constit'tionalcon#entions, $%e =ec'ti#e Co'ncil is appointed . t%e ie'tenant Ho#e"no"

(Constitution Act, #3>? &@.


30/89

inf"in7e*ent sta7e of t%e constit'tional anal.sis, &owe#e" . "ef'sin7 to co*ine t%edisc'ssions t%e BC$ ens'"es t%e cons'ltations a"e i""ele#ant at t%e inf"in7e*entsta7e and t%e"e. *akes it *'c% easie" to estalis% an inf"in7e*ent, $%is *'st e

w"on7, $%e BC$ cannot 'nilate"all. affect t%e constit'tionalit. of t%e P"o#ince125? inall. t%e ;'d7e126? $%e Affected $opics in#ol#e not onl. wo"kin7 conditions 't *atte"s of

ed'cation polic., $%e P"o#ince is c%a"7ed wit% t%e de*oc"atic "esponsiilit. to de#eloped'cation polic. in t%e p'lic inte"est and is %eld politicall. acco'ntale fo" t%e polic.

c%oices it *akes, !ndeed t%e p"o#ision of p'lic ed'cation is one of t%e lon7eststandin7 oli7ations of t%e p"o#incial 7o#e"n*ent datin7 ack e#en efo"e B"itis%

Col'*ia ;oined Canada in 181,

>12? $%e"e is an o#io's tension etween t%e P"o#ince


31/89

>12? 9e disa7"ee wit% t%is anal.sis, !n o'" #iew t%e P"o#ince132? $%e ;'d7e e7an %e" disc'ssion of %e" second alte"nati#e findin7 t%at t%eP"o#ince did not act in 7ood fait% as follows (at pa"a, 182:

-e#e"t%eless if ! a* w"on7 on *. concl'sions t%at it was necessa". fo" t%e 7o#e"n*entto e actin7 ;ua e*plo.e" if it seeks to "el. on its disc'ssions wit% t%e BC$ as

affectin7 t%e anal.sis of t%e s'stance of t%e s, 2(d "i7%t ! will 7o on to also *akefindin7s of facts "e7a"din7 t%ose disc'ssions anal.in7 w%et%e" t%e content *i7%t

app"o=i*ate an e*plo.e"@e*plo.ee 7ood fait% cons'ltation p"ocess a*elio"atin7 t%ee=tent to w%ic% t%e Bill 22 le7islation inte"fe"es wit% collecti#e a"7ainin7,

>133? As we "elate t%e t"ial ;'d7e


32/89

"ep"esentati#es t%o'7%t t%is wo'ld 7i#e 7o#e"n*ent t%e oppo"t'nit. to 7ain politicals'ppo"t fo" i*posin7 le7islation on t%e 'nion,

>134? As will e seen t%e infe"ence t%at t%e P"o#ince acted i*p"ope"l. . seekin7 top"o#oke a st"ike as co#e" to 7ain political ( i.e. p'lic s'ppo"t fo" i*posin7 le7islation

on t%e BC$ is a c"itical concl'sion, $%e ;'d7e


33/89

>138? !n Fraser +cac%lin C,),C, and eBel ), %elpf'll. s'**a"ied +ealthervices on t%e iss'e of t%e content of 7ood fait% ne7otiation (at pa"a, 41:

B. wa. of elao"ation on w%at constit'tes 7ood fait% ne7otiation t%e *a;o"it. of t%eCo'"t >in +ealth ervices? stated:

@ /ection 2(d "e'i"es t%e pa"ties to *eet and en7a7e in *eanin7f'l dialo7'e, $%e.*'st a#oid 'nnecessa". dela.s and *ake a "easonale effo"t to a""i#e at an acceptale

cont"act (pa"as, 8 100 and 101I

@ /ection 2(d does not i*pose a pa"tic'la" p"ocess, Diffe"ent sit'ations *a. de*anddiffe"ent p"ocesses and ti*elines (pa"a, 10I

@ /ection 2(d does not "e'i"e t%e pa"ties to concl'de an a7"ee*ent o" accept an.pa"tic'la" te"*s and does not 7'a"antee a le7islated disp'te "esol'tion *ec%anis* in

t%e case of an i*passe (pa"as, 102@103I

@ /ection 2(d p"otects onl. Et%e "i7%t ,,, to a 7ene"al p"ocess of collecti#e a"7ainin7not to a pa"tic'la" *odel of lao'" "elations no" to a specific a"7ainin7 *et%odF (pa"a,

1,

>13? 9%ile Fraser did not disc'ss 7ood fait% an. f'"t%e" in t%e ast"act so*eadditional 7'idance can e 7leaned f"o* t%e Co'"t


34/89

>143? 9%ile t%e Boa"d so*eti*es "efe"s collecti#el. to ot% aspects of t%e stat'to".d't. as Et%e d't. to a"7ain in 7ood fait%F (see e,7, 1e Catholic Independent choolsiocese of *rince 6eorge >2001? B,C,,R,B,D, -o, 112 at pa"a, 25 it inte"p"ets eac%aspect 'ite diffe"entl. (1e /aramata Centre ociet% >2014? B,C,,R,B,D, -o, 15 at

pa"a, 55:

/ection 11 of t%e Code %as two distinct ele*ents, i"st t%e oli7ation to a"7aincollecti#el. in 7ood fait% add"esses eac% pa"t.*p%asis added,?

>144? Acco"din7 to t%e Boa"d an e*plo.e" *eets its d't. to Ea"7ain collecti#el. in7ood fait%F w%en it s';ecti#el. desi"es and intends to "eac% a7"ee*ent wit% t%e 'nion,!t is a #iolation of t%is d't. to en7a7e in Es'"face a"7ainin7F t%at is to disin7en'o'sl.

7o t%"o'7% t%e *otions of a"7ainin7 wit% no intention of act'all. a7"eein7 to an.t%in7no *atte" w%at t%e 'nion p"oposes,

>145? &owe#e" w%en an e*plo.e" 7en'inel. desi"es a7"ee*ent it is f"ee to en7a7e in%a"d a"7ainin7, Acco"din7 to t%e Boa"d t%e Code is p"e*ised on t%e idea t%at eac%pa"t. Eis entitled to adopt t%e cont"act p"oposals w%ic% a"e in its own inte"est to stick

fi"*l. to its a"7ainin7 positions and t%en to "el. on its econo*ic st"en7t% in a st"ike tofo"ce t%e ot%e" side to *ake t%e concessionsF (1e /oranda etal Industries 9td. >14?

B,C,,R,B,D, -o, 14 'oted wit% app"o#al in 1e I2014? B,C,,R,B,D, -o, 155 at pa"a, 8I see also Canadian @nion of *ublic Emplo%eesv. /ova cotia 9abour 1elations Board >183? 2 /,C,R, 311 at 341, !n ot%e" wo"ds t%e

f'nction of t%e s';ecti#e d't. is not to ens'"e t%at a"7ainin7 i*passes never occ'", !tsf'nction is to p"o*ote t%e fo"*ation of a collecti#e a7"ee*ent w%e"e possile,

>146? Collecti#e a"7ainin7 is in%e"entl. ad#e"sa"ial, $%e d't. to 7en'inel. t". to"eac% a7"ee*ent does not "e'i"e an e*plo.e" to accept a p"oposal w%ic% is

'nacceptale to it, $%'s w%en pa"ties fail to "eac% a7"ee*ent eca'se one "ef'ses toaccept t%e de*ands of t%e ot%e" neit%e" %as necessa"il. failed to *eet its d't. to

a"7ain in 7ood fait% (/aramata Centre at pa"a, 56, A fail'"e to "eac% a7"ee*ent *a.e evidence of s'"face a"7ainin7 't a fail'"e to "eac% a7"ee*ent is

not itself inconsistent wit% t%e d't. to a"7ain in 7ood fait%, $%e d't. is intended to %elp't not "e'i"e pa"ties to "eac% a7"ee*ent, !n addition t%e Code p"o#ides *ec%anis*s

incl'din7 st"ikes and locko'ts t%at can e 'sed to p't p"ess'"e on t%e ot%e" side to"eac% a7"ee*ent,

>14? &onest. of intention is necessa". 't not s'fficient to co*pl. wit% s, 11(1, Bot%pa"ties *'st 'nde"take Ee#e". "easonale effo"tF to act'all. "eac% a7"ee*ent,

#io'sl. t%is d't. is *eas'"ed a7ainst an o;ecti#e standa"d, C"'ciall. %owe#e" t%atstanda"d is p"oced'"al "at%e" t%an s'stanti#e, 9it% two na""ow e=ceptions not "ele#ant

%e"e t%e Boa"d will not assess pa"ties< ne7otiatin7 positions fo" s'stanti#e


35/89

"easonaleness (/oranda at 15 cited wit% app"o#al in I2012? B,C,,R,B,D, -o, 143 t%ee*plo.e" was !CBC a C"own co"po"ation, $%e P"o#ince was en7a7ed in a "e#iew

p"ocess fo" C"own co"po"ations and !CBC wo'ld not "ecei#e a financial *andate 'ntil itwas co*plete, !CBC "ef'sed to a"7ain wit% t%e 'nion on *oneta". iss'es 'ntil t%e

"e#iew was co*plete, $%e Boa"d concl'ded !CBC was not *akin7 e#e". "easonaleeffo"t to concl'de an a7"ee*ent eca'se it %ad *ade a"7ainin7 s';ect to an e=te"nal

p"econdition, $%e Boa"d stated t%at E;ecti#el. speakin7 t%e *plo.e"


36/89

of t%e BCP/A p"esent at eac% *eetin7I and t%e"e was collecti#e a"7ainin7 etweent%e BC$ and t%e BCP/A, 9e concl'ded ao#e t%at t%e disc'ssions at ot% tales

a"e "ele#ant to w%et%e" Bill 22 inf"in7ed t%e s, 2(d "i7%ts of t%e BC$152? $%e cons'ltations e7an wit% a *eetin7 on 20 +a. 2011, $%e t"ial ;'d7econt"asted t%e #e". diffe"ent positions of t%e pa"ties (at pa"as, 201@203:

At t%e +a. 20 2011 *eetin7 w%ic% was t%e fi"st *eetin7 etween t%e 7o#e"n*ent and'nion "ep"esentati#es afte" t%e Bill 28 Decision +", /t"asak f"a*ed t%e 7o#e"n*ent153? $%ese positions we"e essentiall. "epeated . t%e pa"ties at t%e *eetin7 of 3 )'ne 2011, At t%e *eetin7 of )'l. 2011 +s, Clai"e A#ison 7a#e a p"esentation one%alf of t%e +inist". of d'cation on t%e P"o#ince154? +s, A#ison 7a#e e=a*ples of wa.s in w%ic% t%e P"o#ince felt t%e Deleted $e"*swe"e inconsistent wit% t%ose o;ecti#es, $%e BC$ #i7o"o'sl. deated w%et%e" t%e

Deleted $e"*s we"e in fact inconsistent wit% t%e P"o#ince


37/89

>155? Afte" t%e *eetin7 of )'l. 2011 t%e pa"ties e=c%an7ed co""espondence, $%eP"o#ince wanted anot%e" *eetin7 in )'l. 't t%e BC$ was not a#ailale 'ntil A'7'st,D'"in7 t%is pe"iod t%e BC$ "o'7%t a f"es% co'"t application seekin7 7'idance as tot%e t"'e effect of t%e Bill 28 Decision, $%is was appa"entl. t%o'7%t necessa". in li7%t of t%e pa"ties< 'ite di#e"7ent #iews of t%e *eanin7 of t%at decision, ($%at application was

not %ea"d 'ntil 11 ctoe" 2011,

>156? At t%e *eetin7 of 11 A'7'st 2011 +", Pete" D"esc%e" a "eti"ed dep't.s'pe"intendent of t%e /'""e. /c%ool Dist"ict *ade a p"esentation atte*ptin7 toill'st"ate t%e i*plications fo" t%at dist"ict if t%e Deleted $e"*s we"e "esto"ed, &e

de#eloped two o#e"all t%e*es (at pa"as, 231@233:

i"st it was +", D"esc%e"15? At t%e *eetin7 of /epte*e" 2011 t%e P"o#ince *ade a p"oposal to add"essclass co*position iss'es a si7nificant aspect of t%e Affected $opics, A Class

"7aniation 'nd (EC was p"oposed to a*elio"ate teac%e" wo"kload and lea"nin7ˮc%allen7es . identif.in7 need at t%e sc%ool le#el, $eac%e"s wo'ld e cons'lted on %ow

it was spent, !t wo'ld e incl'ded in a sepa"ate a7"ee*ent not wit%in t%e confines of t%e collecti#e a7"ee*ent, $%e P"o#ince said t%at its plans we"e p"esented as a

Ef"a*ewo"k fo" disc'ssionF and in#ited co**ents f"o* t%e BC$, $%e BC$ was noti**ediatel. p"epa"ed to co**ent and t%e *eetin7 ended,

>158? n 13 /epte*e" 2011 t%e BC$ iss'ed a p"ess "elease c"iticiin7 t%e Cand statin7 it was callin7 off t%e ne7otiations 'ntil t%e ;'d7e "'led on t%e BC$


38/89


39/89

dist"ict le#el, 9it%in eac% dist"ict t%e"e wo'ld e cons'ltations etween p"incipalss'pe"intendents and local 'nion p"esidents, !nitiall. t%e p"oposal %ad een t%at

s'pe"intendents and local 'nion p"esidents wo'ld %a#e to "eac% a7"ee*ent 't t%eBC$ e=p"essed conce"n (in its p"ess "elease t%at t%is wo'ld %old 'p f'nds, $%eP"o#ince "esponded . p"oposin7 t%at local 'nion p"esidents %a#e a "i7%t to e

cons'lted in 7ood fait% 't f'ndin7 wo'ld not e conditional 'pon a7"ee*ent ein7"eac%ed,

>164? $%e BC$ *ade a co'nte"@p"oposal at t%e *eetin7 of 10 -o#e*e" 2011, !tconte*plated ce"tain c%an7es to t%e deleted collecti#e a7"ee*ent lan7'a7e, o"

e=a*ple t%e BC$ p"oposed to "oaden t%e e=ceptions to class sie *a=i*'*s and toa7"ee to a"7ain t%at iss'e onl. at t%e p"o#incial le#el, $%ese we"e concessions,

>165? +eetin7s followed on 21 and 23 -o#e*e" 2011, +", D"esc%e" "esponded tot%e BC$166? $%e t"ial ;'d7e s'**a"ied %e" #iew of t%e pa"ties< positions (at pa"a, 313:

ookin7 at t%e w%ole of t%e ne7otiations t%e s'stance of t%e pa"ties< positions in t%epost@Bill 28 Decision disc'ssions "e#ealed t%e*sel#es to e as follows:

a t%e 7o#e"n*ent did not c%an7e f"o* its position t%at p"e@dated Bill 28 and t%e Bill28 Decision na*el. t%at collecti#e a"7ainin7 o#e" t%e 9o"kin7 Conditions was 'nd'l."est"icti#e and li*ited *ana7e*ent "i7%ts and t%e"efo"e it was not willin7 to a7"ee toan. collecti#e a"7ainin7 o#e" t%ese te"*s o" to an. "et'"n of t%e deleted collecti#e

a7"ee*ent lan7'a7e dealin7 wit% 9o"kin7 ConditionsI

t%e 7o#e"n*ent p"oposed a diffe"ent p"ocess o'tside of collecti#e a"7ainin7 onew%e"e t%e BC$ wo'ld e Econs'ltedF in "elation to t%e allocation of a f'nd t%at wo'ldadd"ess onl. a s*all pe"centa7e of 'ndefined Eco*ple=F classes, !ts p"oposal did not

add"ess an. of t%e ot%e" 9o"kin7 Conditions and "e'i"ed t%e BC$ to 7i#e 'p t%e "i7%tto ne7otiate o#e" 9o"kin7 Conditions in collecti#e a"7ainin7 and fo" BC$ *e*e"s to

7i#e 'p ot%e" 7"ie#ances 'n"elated to Bill 28 as wellI

c t%e BC$ did not c%an7e f"o* its #iews t%at t%e Bill 28 Decision %ad affi"*ed t%atteac%e"s< we"e entitled to add"ess 9o"kin7 Conditions as a s';ect of collecti#e

a"7ainin7 and its position t%at it s%o'ld e entitled to collecti#el. a"7ain t%ose iss'esId alt%o'7% its initial position was t%at t%e deleted 9o"kin7 Conditions lan7'a7e

s%o'ld e "et'"ned to t%e collecti#e a7"ee*ent t%e BC$ did p"opose so*e c%an7es tot%e deleted collecti#e a7"ee*ent lan7'a7e, $%e BC$ in#ited a co'nte"@p"oposal 't

t%e 7o#e"n*ent opposed a collecti#e a"7ainin7 f"a*ewo"k and did not co'nte"@p"oposeI


40/89

e t%e BC$ sta"ted f"o* t%e position t%at it did not *atte" if t%e "esto"ation of collecti#e a7"ee*ent te"*s wo'ld cost *one. . wa. of %i"in7 *o"e staff and t%at t%e

answe" to t%is was si*pl. t%at t%e 7o#e"n*ent o'7%t to p"o#ide *o"e f'ndin7 toed'cation, !t did %owe#e" ask fo" info"*ation and appea" willin7 to e=plo"e costin7 in its

last disc'ssions efo"e t%e 7o#e"n*ent decla"ed an i*passe,

(ii) Colle#%i"e bargaining

>16? +eanw%ile t%e BC$ was also en7a7ed in collecti#e a"7ainin7 wit% t%eBCP/A, Between +a"c% 2011 and e"'a". 2012 t%e BC$ and t%e BCP/A *et 8

ti*es, $%e. did not *ana7e to "eac% a new collecti#e a7"ee*ent,

>168? A si7nificant a""ie" to s'ccessf'l a"7ainin7 in t%is "o'nd was t%eP"o#ince16? o" its pa"t t%e BC$ so'7%t s'stantial sala". and enefit inc"eases fo" its*e*e"s t%at e=ceeded t%e net e"o *andate, Ba"7ainin7 stalled ea"l. o#e" t%e iss'e

of co*pensation, !t did not p"o7"ess, A fact@finde" appointed . t%e P"o#ince in e"'a".2012 concl'ded t%at #ol'nta". settle*ent was 'nlikel. and t%at t%e net e"o *andatewas a f'nda*ental ostacle to t%e s'ccessf'l concl'sion of a collecti#e a7"ee*ent,

(#) Legal errors

>10? !n o'" s'**a". of t%e t"ial ;'d7e


41/89

!*po"tantl. t%is Co'"t did not find in t%e Bill 28 Decision t%at t%e e=istin7 9o"kin7Conditions lan7'a7e in t%e 2001 collecti#e a7"ee*ent in fact i*peded fle=iilit. and

c%oice, Rat%e" t%is Co'"t fo'nd t%e 7o#e"n*ent e#idence of t%is to e 'npe"s'asi#e>,?

>12? $%e t"ial ;'d7e was also c"itical of t%e s'stance of Pete" D"esc%e"15? $%e t"ial ;'d7e also i*plied t%at t%e P"o#ince o'7%t to allocate *o"e "eso'"cesto ed'cation (at pa"a, 35:

! conside" it a fai" c"iticis* t%at t%e BC$ "ep"esentati#es did not appea" open todisc'ssions ao't t%e costs i*plications of "et'"nin7 t%e 9o"kin7 Conditions cla'ses tot%e collecti#e a7"ee*ent 'ntil #e". late in t%e da., &owe#e" pa"t of t%e p"ole* was t%ewa. t%is disc'ssion was f"a*ed . t%e 7o#e"n*ent as t%o'7% it was a p"ole* wit% t%elan7'a7e in t%e collecti#e a7"ee*ent o" a p"ole* wit% %a#in7 an. 9o"kin7 Conditions

add"essed in collecti#e a"7ainin7 "at%e" t%an an o#e"all "eso'"ces p"ole*,

>*p%asis added,?

>16? &e"e t%e t"ial ;'d7e was e#al'atin7 t%e s'stanti#e "easonaleness of t%eP"o#ince


42/89

>1? $%e fact'al asis and inte"nal lo7ic of 7o#e"n*ent18? As will e seen t%e t"ial ;'d7e infe""ed t%at t%e P"o#ince was not t"'l.co**itted to "eac%in7 a7"ee*ent d'"in7 t%e ne7otiations, 9e will "e#iew t%e e#idencefo" t%is infe"ence s%o"tl. 't we pa'se %e"e to ose"#e t%at t%is fact'al concl'sion wast%o"o'7%l. o'nd 'p wit% t%e t"ial ;'d7e182? $%e P"o#ince "ef'sed to accede to t%e position of t%e BC$ t%at t%e Affected$opics %ad to e ne7otiated on t%e p"e*ise t%at t%e Deleted $e"*s %ad al"ead. een


43/89

"et'"ned to t%e collecti#e a7"ee*ent, $%e t"ial ;'d7e conside"ed t%is position to e'n"easonale 7i#en %e" decla"ation of in#alidit. in t%e Bill 28 Decision, /%e concl'ded

t%e effect of t%at decla"ation to e t%at t%e Deleted $e"*s wo'ld e "et'"ned"et"oacti#el. to t%e collecti#e a7"ee*ent (at pa"a, 14,

>183? !n o'" #iew %owe#e" t%e P"o#ince was not "e'i"ed w%ile t%e decla"ation of in#alidit. was s'spended to p"oceed on t%e asis t%at t%e Deleted $e"*s %ad een"esto"ed to t%e collecti#e a7"ee*ent, As we %a#e seen s, 2(d does not 7'a"antee

pa"tic'la" o'tco*es, !t does not "e'i"e t%at a7"ee*ent e "eac%ed, !t does not "e'i"eone pa"t. to capit'late to t%e de*ands of anot%e", $%e P"o#ince was entitled to take t%epositions t%at t%e Deleted $e"*s we"e inconsistent wit% its polic. o;ecti#es and t%at it

was disinclined to pe"*it a collecti#e a7"ee*ent t%at "esto"ed t%e*, !ts oli7ation was top"o#ide a constit'tionall. ade'ate p"ocess of 7ood fait% cons'ltations, !t was not

"e'i"ed to aandon its polic. i*pe"ati#es o" dis"e7a"d t%e 'd7eta". conse'ences of a7"eein7 to "esto"e t%e Deleted $e"*s, !n effect t%e P"o#ince184? 9e t'"n now to t%e fact'al iss'es,

(d) Fa#%ual errors

>185? $%e t"ial ;'d7e *ade two ke. fact'al dete"*inations on t%e iss'e of w%et%e" t%eP"o#ince cons'lted in 7ood fait%:

a Befo"e t%e cons'ltations e7an t%e P"o#ince "esol#ed t%at it wo'ld not alte" Bill 28 no *atte" w%at t%e BC$ said, !ts plan was to doc'*ent t%at it %ad cons'lted

t%en enact new le7islation w%ic% "e@deleted all t%e Deleted $e"*s (pa"as, 188@14 (t%eEClosed +ind indin7F,

$%e P"o#ince186? $%e P"o#ince


44/89

>188? 9e "e*ind o'"sel#es of t%e standa"d of "e#iew, !t is well@tilled 7"o'nd (and afe"tile field fo" appellate e""o", $%e t"ial ;'d7e


45/89

/o .o' didnwit% t%e P"o#ince


46/89

>16? $%e lea"ned ;'d7e e=p"essed t%e /t"ike indin7 so (at pa"a, 368:

"o* t%e sta"t of its post@Bill 28 Decision ne7otiation wit% t%e BC$ t%e 7o#e"n*ent%ad a st"ate7. in *ind t%at it wo'ld e to its enefit if ne7otiations failed and if collecti#e

a"7ainin7 "es'lted in a st"ike and i*passe, $%is wo'ld 7i#e it t%e oppo"t'nit. to pass

le7islation w%ic% wo'ld add"ess t%e "epe"c'ssions of t%e Bill 28 Decision and at t%esa*e ti*e pass le7islation i*posin7 a new collecti#e a7"ee*ent wit% net e"oco*pensation,

>1? $%e t"ial ;'d7e fo'nd t%at t%e P"o#ince e=pected t%at collecti#e a"7ainin7wo'ld fail eca'se it elie#ed t%e net e"o *andate and its ed'cation polic. o;ecti#eswo'ld e 'npalatale to t%e BC$ (at pa"a, 380, $%e t"ial ;'d7e contin'ed (at pa"as,

381@384:

$%e 7o#e"n*ent t%'s e=pected f"o* e#en efo"e collecti#e a"7ainin7 e7an in +a"c%2011 t%at it wo'ld lead to t%e BC$ callin7 a st"ike,

Afte" t%e Bill 28 Decision ca*e down a7ainst it t%e 7o#e"n*ent de#eloped a "oadpolitical st"ate7. to deal wit% t%e BC$ ot% in "espect of its settle*ent disc'ssions

followin7 t%e Bill 28 Decision and in "espect of collecti#e a"7ainin7, +", /t"asak wasinst"'*ental in t%e de#elop*ent of t%is "oad st"ate7.,

$%e 7o#e"n*ent saw t%at t%e fail'"e of t%e two ne7otiatin7 tales co'ld e a 'sef'lpolitical oppo"t'nit. fo" it, As ea"l. as )'ne 2011 t%e 7o#e"n*ent was conside"in7 a

st"ate7. of a co*ined le7islati#e "esponse to an e=pected teac%e"s< st"ike and to Bill28, +", /t"asak


47/89

one le7islati#e initiati#e at t%e end of t%e one .ea" s'spension 7"anted in t%e Bill 28Decision,

>18? !n ot%e" wo"ds t%e t"ial ;'d7e fo'nd t%at t%e P"o#ince was e=pectin7 to %a#e topass cont"o#e"sial le7islation add"essin7 t%e Bill 28 Decision and i*posin7 a new

collecti#e a7"ee*ent, $%e P"o#ince was also e=pectin7 teac%e"s to st"ike, $%e t"ial ;'d7e fo'nd t%at t%e P"o#ince1? B't a f'll st"ike did not *ate"ialie, $eac%e"s si*pl. wit%d"ew so*e non@essential se"#ices, $%e t"ial ;'d7e contin'ed (at pa"as, 386@38:

9%en a f'll st"ike did not *ate"ialie so i*po"tant was a st"ike to t%e 7o#e"n*entst"ate7. t%at in /epte*e" 2011 +", /t"asak planned a 7o#e"n*ent st"ate7. of

inc"easin7 t%e p"ess'"e on t%e 'nion so as to p"o#oke a >f'll? st"ike,

!n f'"t%e"ance of t%is st"ate7. t%e 7o#e"n*ent so'7%t to fo"ce sc%ool dist"icts to cancelteac%e"s< lea#es and p"ofessional de#elop*ent da.s incl'din7 . "ed'cin7 f'ndin7 to

sc%ool dist"icts to 7et t%e* to ca"". t%ese *eas'"es o't, Anot%e" aspect of t%esep"ess'"e tactics was to %a#e BCP/A appl. fo" an o"de" of t%e ao'" Relations Boa"dto #a". p"e#io's essential se"#ices o"de"s so t%at dist"icts co'ld "ed'ce teac%e"s< pa.,

$%is application was "o'7%t 't was 'ns'ccessf'l,

>200? $%e t"ial ;'d7e t%en c"iticall. concl'ded (at pa"a, 38:

-e#e"t%eless ! find t%at +", /t"asak202? !t is not in disp'te t%at t%e P"o#ince so'7%t to appl. econo*ic p"ess'"e to t%eBC$, $%e ke. 'estion is w%at t%e P"o#ince was t".in7 to ac%ie#e in doin7 so, As

disc'ssed appl.in7 econo*ic p"ess'"e to a 'nion is not inconsistent wit% 7ood fait%p"o#ided it is done fo" a le7iti*ate p'"pose, !n o'" opinion t%e P"o#ince did not act in7ood fait% if it t"ied to incite a st"ike solel. to 7ain political ad#anta7e, &owe#e" if t%eP"o#ince


48/89

p'"pose t%en "eco7niin7 t%at fail'"e wo'ld also %a#e ce"tain ad#anta7es did not itself constit'te ad fait%,

>203? +", /t"asak testified f"ankl. t%at t%e P"o#ince e=pected it wo'ld %a#e to passle7islation add"essin7 t%e Bill 28 Decision and i*posin7 a new collecti#e a7"ee*ent

and t%at s'c% le7islation wo'ld e cont"o#e"sial if teac%e"s we"e en7a7ed in onl. low@le#el ;o action, &e also acknowled7ed t%at %e %ad 7i#en p"esentations to #a"io'sofficials e=plainin7 %ow t%e P"o#ince *i7%t p"ess'"e t%e BC$ to escalate f"o* low@

le#el ;o action to a f'll@scale st"ike,

>204? 9e conside" it i*po"tant to "eco7nie t%at in an ad#e"sa"ial collecti#ea"7ainin7 "elations%ip *ana7in7 t%e ti*in7 of a disp'te and t%e wa. in w%ic% it *a.

escalate is no"*al p"actice, o" e=a*ple 'nions *a. p"efe" to a#oid %a#in7 t%ei" *e*e"s walk t%e picket line at ce"tain ti*es of t%e .ea", $%e. *a. p"efe" to %alt wo"kat ke. pe"iods, !n ed'cation t%is co'ld e at "epo"t ca"d ti*e o" t%e sta"t of t%e sc%ool

.ea" t%e"e. *a=i*iin7 t%e p"ess'"e on sc%ool oa"ds, *plo.e"s *a. %a#e aninte"est in enco'"a7in7 a st"ike if t%e"e is to e one at ce"tain ot%e" ti*es of t%e .ea",

9e see not%in7 siniste" in t%e wa. t%e P"o#ince "eco7nied w%ile fo"*'latin7 itsst"ate7. t%e i*po"tance of t%e ti*in7 of t%e disp'te and t%e ci"c'*stances 'nde" w%ic%

it *i7%t escalate,

>205? +", /t"asak fo" e=a*ple w%en "efe""ed to %is speakin7 notes fo" a *eetin7wit% two top polic. ad#ise"s in )'ne 2011 e=plained ($"ans, p, 42 ll, 38@45:

/o w%at we206? /i*ila"l. w%en "efe""ed to %is speakin7 notes fo" a p"esentation to Cainet inlate /epte*e" 2011 +", /t"asak e=plained ($"ans, p, 432 ll, 3@4I p, 433 ll, 1@1:

9%at o'" o;ecti#e %e"e is e=plainin7 t%e *ana7e*ent to a f'll scale st"ike, And t%e i7iss'e as ! said fo" 7o#e"n*ent w%en it inte"fe"es in f"ee collecti#e a"7ainin7 is t%ep"ess'"e associated wit% it, /o all we %ad is t%is kind of low le#el st"ike w%ic% was

%a#in7 a "eall. si7nificant i*pact on ed'cation 't w%e"e pa"ents we"en


49/89

d'"in7 a st"ike t%at doesn20? +", /t"asak acknowled7ed t%at %e told Cainet in ea"l. /epte*e" 2011 t%at if t%e P"o#ince co'ld appl. p"ess'"e in t%is wa. %e felt teac%e"s wo'ld likel. escalate to a

f'll@scale st"ike, Refe""in7 to %is speakin7 notes %e e=plained ($"ans, p, 430 ll, 11@26:

K /o w%at !


50/89

And all of t%is is in t%e conte=t of a st"ike p'ttin7 t"e*endo's p"ess'"e on t%e deli#e". of ed'cation se"#ices t%at doesn211? +", /t"asak st"essed t%"o'7%o't t%is pa"t of %is e#idence t%e need fo" aEalance of incon#enienceF to ot% pa"ties s'c% t%at Et%e e*plo.e" loses se"#ices andt%e e*plo.ees lose pa.F, $%is is w%at d"o#e %is acknowled7*ent t%at takin7 steps to

"ed'ce teac%e"s< pa. to "eflect t%ei" pa"tial wit%d"awal of se"#ices *i7%t p't p"ess'"e ont%e BC$ to escalate to a f'll@scale st"ike,

>212? +", /t"asak testified t%at t%e Eest of all wo"lds K is if 7o#e"n*ent did take t%eaction to "ed'ce teac%e"s< pa. t%at didn213? $%e t"ial ;'d7e see*s to %a#e o#e"looked t%is c"'ciall. i*po"tant po"tion of +",/t"asak214? $%e t"ial ;'d7e also i7no"ed t%e fact t%at at t%is ti*e t%e"e we"e two sepa"atep"ocesses 'nfoldin7 t%e collecti#e a"7ainin7 and t%e cons'ltations, $%e t"ial ;'d7e

appea"s to %a#e conflated t%e d.na*ics of t%ese two fo"'*s w%ic% we"e kept sepa"ateat t%e BC$215? !n t%e conte=t of t%e collecti#e a"7ainin7 +", /t"asak was speakin7 to t%e factt%at t%e BC$ %ad adopted a s'ccessf'l tactic in wit%d"awin7 onl. so*e se"#ices

t%e"e. c"eatin7 Et"e*endo's p"ess'"eF on t%e ed'cation s.ste* wit%o't c"eatin7 an.Eco'nte"#ailin7 diffic'lt. on teac%e"sF t%at is an. loss of pa.,

>216? Coincidentall. a f'll scale st"ike ca'sed . e#ents at t%e collecti#e a"7ainin7tale wo'ld %a#e se"#ed t%e P"o#ince21? 9e concl'de t%at t%e t"ial ;'d7e


51/89

le7iti*ate and cond'cted in 7ood fait% wit% t%e 7oal of *o#in7 t%e BC$ towa"dsa7"ee*ent, Alt%o'7% t%e P"o#ince anticipated t%at t%is st"ate7. wo'ld likel. not

s'cceed its 7oal was to "eac% a7"ee*ent if possile, $%e"e is a f'nda*ental diffe"enceo#e"looked . ot% t%e t"ial ;'d7e and t%e BC$ in its s'*issions efo"e t%is Co'"tetwee

décision de la cour d'appel de la c.-b. sur le droit de négocier le nombre d'élèves par classe

Documents