Date: 20010928
Docket: GST-2443-01
Neutral Citation: 2001 FCT 1074
Ottawa, Ontario, this 28th day of September, 2001
PRESENT: THE HONOURABLE MR. JUSTICE JOHN A. O'KEEFE
In the matter of the Excise Tax Act R.S.C., 1985,
c. E-15
- AND -
In the matter of an assessment or assessments by the Minister of National
Revenue under the Excise Tax Act against:
Canadian Aggregate Co. Ltd.
16735 114 Ave
Edmonton, AB.
T5M 3P9
[1] This is a motion by Canadian Aggregate Co. Ltd. (the "applicant") for an order:
1. Abridging the time for serving and filing this notice of motion;
2. Quashing the payment requirements issued by the Canada Customs and Revenue Agency to Park Paving Ltd. and Raiders Site Services Ltd. on or about June 26, 2001;
3. Enjoining the Canada Customs and Revenue Agency from taking any further or other collection remedies under the Excise Tax Act R.S.C. 1985, c. E-15 (the "Act") and any provision of the statutes of Alberta in respect of the applicant's alleged indebtedness pursuant to the Canada Customs and Revenue Agency Assessment of the applicant for its January 1 to September 30, 1999 reporting period(s), notice of which was dated May 28, 2001 until the Minister of National Revenue reconsiders the assessment pursuant to subsection 301(3) of the Act; and
4. In the alternative to paragraph 3 above, enjoining the Canada Customs and Revenue Agency from taking any further or other collection remedies under the Act and any provision of the statutes of Alberta in respect of the applicant's accounts receivable from Park Paving Ltd. due August 15, 2001 in the amount of $89,515.09 and Raiders Site Services ltd. due August 17, 2001 in the amount of $14,356.14, with such injunction against the Canada Customs and Revenue Agency permitting the applicant to pay all or part of the following individuals and entities with the funds received from Park Paving Ltd. and Raiders Site Services Ltd. from the period August 15, 2001 to September 17, 2001 in the approximate aggregate amounts:
(1) Employee payroll $ 93,529.35
(2) Independent truckers $255,627.03
(3) Subcontractors $230,534.39
(4) Fuel $ 30,000.00
(5) Insurance $ 14,462.06
(6) Other payables $104,234.92
(7) Utilities $ 9,000.00
(8) The Canada Customs and Any remaining
Revenue Agency balance
Background Facts
[2] The applicant filed its annual GST return on July 31, 2000 for the period January 1 to December 31, 1999. The return showed net tax payable by the applicant was $60,554.80, an amount which has been paid.
[3] A Notice of Assessment, dated May 28, 2001, was issued to the applicant by the Minister of National Revenue for the reporting period January 1, 1999 to September 30, 1999. The amount assessed for aggregate net tax interest and penalties was $173,662.17 (the "CCRA assessment").
[4] The Canadian Customs and Revenue Agency (the "CCRA") obtained a certificate from this Court for the amount of $173,636.79 and registered it as a writ of enforcement under the Alberta Registries Personal Property Registry against the applicant's personal property.
[5] The CCRA obtained a warrant (writ of execution) to effect seizure of personal property at the applicant's head office. Some of the personal property that was seized was released to the applicant under a bailee's undertaking. The applicant objected to the seizure.
[6] On or about June 26, 2001, CCRA served two significant clients of the applicant with requirements to pay.
[7] The applicant filed quarterly GST returns for its January 1 to December 31, 1999 reporting periods on or about June 27, 2001.
[8] The applicant has filed a Notice of Objection to the assessment and the notice was dated August 10, 2001.
Issue
[9] Can and should the relief requested by the applicant be granted?
Relevant Law and Rules of the Court
[10] Subsections 17(1) and (2) of the Federal Court Act, R.S.C. 1985, c. F-7 state:
17. (1) Except as otherwise provided in this Act or any other Act of Parliament, the Trial Division has concurrent original jurisdiction in all cases where relief is claimed against the Crown. (2) Without restricting the generality of subsection (1), the Trial Division has concurrent original jurisdiction, except as otherwise provided, in all cases in which (a) the land, goods or money of any person is in the possession of the Crown; (b) the claim arises out of a contract entered into by or on behalf of the Crown; (c) there is a claim against the Crown for injurious affection; or (d) the claim is for damages under the Crown Liability and Proceedings Act. |
17. (1) Sauf disposition contraire de la présente loi ou de toute autre loi fédérale, la Section de première instance a compétence concurrente, en première instance, dans les cas de demande de réparation contre la Couronne. (2) La Section de première instance a notamment compétence concurrente en première instance, sauf disposition contraire, dans les cas de demande motivés par_: a) la possession par la Couronne de terres, biens ou sommes d'argent appartenant à autrui; b) un contrat conclu par ou pour la Couronne; c) un trouble de jouissance dont la Couronne se rend coupable; d) une demande en dommages-intérêts formée au titre de la Loi sur la responsabilité civile de l'État et le contentieux administratif. |
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[11] Subsections 18(1) and (3) of the Federal Court Act, supra state:
18. (1) Subject to section 28, the Trial Division has exclusive original jurisdiction (a) to issue an injunction, writ of certiorari, writ of prohibition, writ of mandamus or writ of quo warranto, or grant declaratory relief, against any federal board, commission or other tribunal; and (b) to hear and determine any application or other proceeding for relief in the nature of relief contemplated by paragraph (a), including any proceeding brought against the Attorney General of Canada, to obtain relief against a federal board, commission or other tribunal. . . . (3) The remedies provided for in subsections (1) and (2) may be obtained only on an application for judicial review made under section 18.1. |
18. (1) Sous réserve de l'article 28, la Section de première instance a compétence exclusive, en première instance, pour_: a) décerner une injonction, un bref de certiorari, de mandamus, de prohibition ou de quo warranto, ou pour rendre un jugement déclaratoire contre tout office fédéral; b) connaître de toute demande de réparation de la nature visée par l'alinéa a), et notamment de toute procédure engagée contre le procureur général du Canada afin d'obtenir réparation de la part d'un office fédéral. . . . (3) Les recours prévus aux paragraphes (1) ou (2) sont exercés par présentation d'une demande de contrôle judiciaire. |
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[12] Section 18.1 of the Federal Court Act, supra states:
18.1 (1) An application for judicial review may be made by the Attorney General of Canada or by anyone directly affected by the matter in respect of which relief is sought. (2) An application for judicial review in respect of a decision or order of a federal board, commission or other tribunal shall be made within thirty days after the time the decision or order was first communicated by the federal board, commission or other tribunal to the office of the Deputy Attorney General of Canada or to the party directly affected thereby, or within such further time as a judge of the Trial Division may, either before or after the expiration of those thirty days, fix or allow. (3) On an application for judicial review, the Trial Division may (a) order a federal board, commission or other tribunal to do any act or thing it has unlawfully failed or refused to do or has unreasonably delayed in doing; or (b) declare invalid or unlawful, or quash, set aside or set aside and refer back for determination in accordance with such directions as it considers to be appropriate, prohibit or restrain, a decision, order, act or proceeding of a federal board, commission or other tribunal. (4) The Trial Division may grant relief under subsection (3) if it is satisfied that the federal board, commission or other tribunal (a) acted without jurisdiction, acted beyond its jurisdiction or refused to exercise its jurisdiction; (b) failed to observe a principle of natural justice, procedural fairness or other procedure that it was required by law to observe; (c) erred in law in making a decision or an order, whether or not the error appears on the face of the record; (d) based its decision or order on an erroneous finding of fact that it made in a perverse or capricious manner or without regard for the material before it; (e) acted, or failed to act, by reason of fraud or perjured evidence; or (f) acted in any other way that was contrary to law. (5) Where the sole ground for relief established on an application for judicial review is a defect in form or a technical irregularity, the Trial Division may (a) refuse the relief if it finds that no substantial wrong or miscarriage of justice has occurred; and (b) in the case of a defect in form or a technical irregularity in a decision or order, make an order validating the decision or order, to have effect from such time and on such terms as it considers appropriate. |
18.1 (1) Une demande de contrôle judiciaire peut être présentée par le procureur général du Canada ou par quiconque est directement touché par l'objet de la demande. (2) Les demandes de contrôle judiciaire sont à présenter dans les trente jours qui suivent la première communication, par l'office fédéral, de sa décision ou de son ordonnance au bureau du sous-procureur général du Canada ou à la partie concernée, ou dans le délai supplémentaire qu'un juge de la Section de première instance peut, avant ou après l'expiration de ces trente jours, fixer ou accorder. (3) Sur présentation d'une demande de contrôle judiciaire, la Section de première instance peut_: a) ordonner à l'office fédéral en cause d'accomplir tout acte qu'il a illégalement omis ou refusé d'accomplir ou dont il a retardé l'exécution de manière déraisonnable; b) déclarer nul ou illégal, ou annuler, ou infirmer et renvoyer pour jugement conformément aux instructions qu'elle estime appropriées, ou prohiber ou encore restreindre toute décision, ordonnance, procédure ou tout autre acte de l'office fédéral. (4) Les mesures prévues au paragraphe (3) sont prises par la Section de première instance si elle est convaincue que l'office fédéral, selon le cas_: a) a agi sans compétence, outrepassé celle-ci ou refusé de l'exercer; b) n'a pas observé un principe de justice naturelle ou d'équité procédurale ou toute autre procédure qu'il était légalement tenu de respecter; c) a rendu une décision ou une ordonnance entachée d'une erreur de droit, que celle-ci soit manifeste ou non au vu du dossier; d) a rendu une décision ou une ordonnance fondée sur une conclusion de fait erronée, tirée de façon abusive ou arbitraire ou sans tenir compte des éléments dont il dispose; e) a agi ou omis d'agir en raison d'une fraude ou de faux témoignages; f) a agi de toute autre façon contraire à la loi. (5) La Section de première instance peut rejeter toute demande de contrôle judiciaire fondée uniquement sur un vice de forme si elle estime qu'en l'occurrence le vice n'entraîne aucun dommage important ni déni de justice et, le cas échéant, valider la décision ou l'ordonnance entachée du vice et donner effet à celle-ci selon les modalités de temps et autres qu'elle estime indiquées. |
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[13] Section 18.5 of the Federal Court Act, supra states:
18.5 Notwithstanding sections 18 and 18.1, where provision is expressly made by an Act of Parliament for an appeal as such to the Court, to the Supreme Court of Canada, to the Court Martial Appeal Court, to the Tax Court of Canada, to the Governor in Council or to the Treasury Board from a decision or order of a federal board, commission or other tribunal made by or in the course of proceedings before that board, commission or tribunal, that decision or order is not, to the extent that it may be so appealed, subject to review or to be restrained, prohibited, removed, set aside or otherwise dealt with, except in accordance with that Act. |
18.5 Par dérogation aux articles 18 et 18.1, lorsqu'une loi fédérale prévoit expressément qu'il peut être interjeté appel, devant la Cour fédérale, la Cour suprême du Canada, la Cour d'appel de la cour martiale, la Cour canadienne de l'impôt, le gouverneur en conseil ou le Conseil du Trésor, d'une décision ou d'une ordonnance d'un office fédéral, rendue à tout stade des procédures, cette décision ou cette ordonnance ne peut, dans la mesure où elle est susceptible d'un tel appel, faire l'objet de contrôle, de restriction, de prohibition, d'évocation, d'annulation ni d'aucune autre intervention, sauf en conformité avec cette loi. |
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[14] Section 301 of the Excise Tax Act, supra states:
301. (1) Where an assessment is issued to a person in respect of net tax for a reporting period of the person, an amount (other than net tax) that became payable or remittable by the person during a reporting period of the person or a rebate of an amount paid or remitted by the person during a reporting period of the person, for the purposes of this section, the person is a "specified person" in respect of the assessment or a notice of objection to the assessment if (a) the person was a listed financial institution described in any of subparagraphs 149(1)(a)(i) to (x) during that reporting period; or (b) the person was not a charity during that reporting period and the person's threshold amounts, determined in accordance with subsection 249(1), exceed_ $6 million for both the person's fiscal year that includes the reporting period and the person's previous fiscal year. |
301. (1) Pour l'application du présent article, la personne à l'égard de laquelle est établie une cotisation au titre de la taxe nette pour sa période de déclaration, d'un montant (autre que la taxe nette) qui est devenu à payer ou à verser par elle au cours d'une telle période ou du remboursement d'un montant qu'elle a payé ou versé au cours d'une telle période est une personne déterminée relativement à la cotisation ou à un avis d'opposition à celle-ci si, selon le cas_: a) elle est une institution financière désignée visée à l'un des sous-alinéas 149(1)a)(i) à (x) au cours de la période en question; b) elle n'était pas un organisme de bienfaisance au cours de la période en question et le montant déterminant qui lui est applicable, déterminé en conformité avec le paragraphe 249(1), dépasse 6 000 000_$ pour son exercice qui comprend cette période ainsi que pour son exercice précédent. |
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(1.1) Any person who has been assessed and who objects to the assessment may, within ninety days after the day notice of the assessment is sent to the person, file with the Minister a notice of objection in the prescribed form and manner setting out the reasons for the objection and all relevant facts. (1.2) Where a person objects to an assessment in respect of which the person is a specified person, the notice of objection shall (a) reasonably describe each issue to be decided; (b) specify in respect of each issue the relief sought, expressed as the change in any amount that is relevant for the purposes of the assessment; and (c) provide the facts and reasons relied on by the person in respect of each issue. (1.3) Notwithstanding subsection (1.2), where a notice of objection filed by a person to whom that subsection applies does not include the information required by paragraph (1.2)(b) or (c) in respect of an issue to be decided that is described in the notice, the Minister may in writing request the person to provide the information, and those paragraphs shall be deemed to be complied with in respect of the issue if, within 60 days after the request is made, the person submits the information in writing to the Minister. |
(1.1) La personne qui fait opposition à la cotisation établie à son égard peut, dans les 90 jours suivant le jour où l'avis de cotisation lui est envoyé, présenter au ministre un avis d'opposition, en la forme et selon les modalités déterminées par celui-ci, exposant les motifs de son opposition et tous les faits pertinents. (1.2) L'avis d'opposition que produit une personne qui est une personne déterminée relativement à une cotisation doit contenir les éléments suivants pour chaque question à trancher_: a) une description suffisante; b) le redressement demandé, sous la forme du montant qui représente le changement apporté à un montant à prendre en compte aux fins de la cotisation; c) les motifs et les faits sur lesquels se fonde la personne. (1.3) Malgré le paragraphe (1.2), dans le cas où un avis d'opposition produit par une personne à laquelle ce paragraphe s'applique ne contient pas les renseignements requis selon les alinéas (1.2)b) ou c) relativement à une question à trancher qui est décrite dans l'avis, le ministre peut demander par écrit à la personne de fournir ces renseignements. La personne est réputée s'être conformée à ces alinéas relativement à la question à trancher si, dans les 60 jours suivant la date de la demande par le ministre, elle communique par écrit les renseignements requis au ministre. |
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(1.4) Notwithstanding subsection (1.1), where a person has filed a notice of objection to an assessment (in this subsection referred to as the "earlier assessment") in respect of which the person is a specified person and the Minister makes a particular assessment under subsection (3) pursuant to the notice of objection, except where the earlier assessment was made under subsection 274(8) or in accordance with an order of a court vacating, varying or restoring an assessment or referring an assessment back to the Minister for reconsideration and reassessment, the person may object to the particular assessment in respect of an issue (a) only if the person complied with subsection (1.2) in the notice with respect to that issue; and (b) only with respect to the relief sought in respect of that issue as specified by the person in the notice. (1.5) Where a person has filed a notice of objection to an assessment (in this subsection referred to as the "earlier assessment") and the Minister makes a particular assessment under subsection (3) pursuant to the notice of objection, subsection (1.4) does not limit the right of the person to object to the particular assessment in respect of an issue that was part of the particular assessment and not part of the earlier assessment. (1.6) Notwithstanding subsection (1.1), no objection may be made by a person in respect of an issue for which the right of objection has been waived in writing by the person. |
(1.4) Malgré le paragraphe (1.1), lorsqu'une personne a produit un avis d'opposition à une cotisation (appelée « _cotisation antérieure_ » au présent paragraphe) relativement à laquelle elle est une personne déterminée et que le ministre établit, en application du paragraphe (3), une cotisation donnée par suite de l'avis, sauf si la cotisation antérieure a été établie en application du paragraphe 274(8) ou en conformité avec l'ordonnance d'un tribunal qui annule, modifie ou rétablit une cotisation ou renvoie une cotisation au ministre pour nouvel examen et nouvelle cotisation, la personne peut faire opposition à la cotisation donnée relativement à une question à trancher_: a) seulement si, relativement à cette question, elle s'est conformée au paragraphe (1.2) dans l'avis; b) seulement à l'égard du redressement, tel qu'il est exposé dans l'avis, qu'elle demande relativement à cette question. (1.5) Lorsqu'une personne a produit un avis d'opposition à une cotisation (appelée « _cotisation antérieure_ » au présent paragraphe) et que le ministre établit, en application du paragraphe (3), une cotisation donnée par suite de l'avis, le paragraphe (1.4) n'a pas pour effet de limiter le droit de la personne de s'opposer à la cotisation donnée relativement à une question sur laquelle porte cette cotisation mais non la cotisation antérieure. (1.6) Malgré le paragraphe (1.1), aucune opposition ne peut être faite par une personne relativement à une question pour laquelle elle a renoncé par écrit à son droit d'opposition. |
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(2) The Minister may accept a notice of objection notwithstanding that it was not filed in the prescribed manner. (3) On receipt of a notice of objection, the Minister shall, with all due dispatch, reconsider the assessment and vacate or confirm the assessment or make a reassessment. (4) Where, in a notice of objection, a person who wishes to appeal directly to the Tax Court requests the Minister not to reconsider the assessment objected to, the Minister may confirm the assessment without reconsideration. (5) After reconsidering an assessment under subsection (3) or confirming an assessment under subsection (4), the Minister shall send to the person objecting notice of the Minister's decision by registered or certified mail. |
(2) Le ministre peut accepter l'avis d'opposition qui n'a pas été produit selon les modalités qu'il détermine. (3) Sur réception d'un avis d'opposition, le ministre doit, avec diligence, examiner la cotisation de nouveau et l'annuler ou la confirmer ou établir une nouvelle cotisation. (4) Le ministre peut confirmer une cotisation sans l'examiner de nouveau sur demande de la personne qui lui fait part, dans son avis d'opposition, de son intention d'en appeler directement à la Cour canadienne de l'impôt. (5) Après avoir examiné de nouveau ou confirmé une cotisation, le ministre fait part de sa décision par avis envoyé par courrier recommandé ou certifié à la personne qui a fait opposition à la cotisation. |
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302. Where a person files a notice of objection to an assessment and the Minister sends to the person a notice of a reassessment or an additional assessment, in respect of any matter dealt with in the notice of objection, the person may, within ninety days after the day the notice of reassessment or additional assessment was sent by the Minister,(a) appeal therefrom to the Tax Court; or (b) where an appeal has already been instituted in respect of the matter, amend the appeal by joining thereto an appeal in respect of the reassessment or additional assessment in such manner and on such terms as the Tax Court directs. |
302. La personne, ayant présenté un avis d'opposition à une cotisation, à qui le ministre a envoyé un avis de nouvelle cotisation ou de cotisation supplémentaire concernant l'objet de l'avis d'opposition peut, dans les 90 jours suivant cet envoi_: a) interjeter appel devant la Cour canadienne de l'impôt; b) si un appel a déjà été interjeté, modifier cet appel en y joignant un appel concernant la nouvelle cotisation ou la cotisation supplémentaire, en la forme et selon les modalités fixées par cette cour. |
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[15] Rule 372 of the Federal Court Rules, 1998 SOR/98-106 states:
372. (1) A motion under this Part may not be brought before the commencement of a proceeding except in a case of urgency. (2) A party bringing a motion before the commencement of a proceeding shall undertake to commence the proceeding within the time fixed by the Court. |
372. (1) Une requête ne peut être présentée en vertu de la présente partie avant l'introduction de l'instance, sauf en cas d'urgence. (2) La personne qui présente une requête visée au paragraphe (1) s'engage à introduire l'instance dans le délai fixé par la Cour. |
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Analysis and Decision
[16] The applicant has asked for an order abridging the time for serving and filing this notice of motion. I hereby grant that request.
[17] The applicant has requested an order quashing the requirement to pay issued by the CCRA. The most likely manner in which I could quash that direction, if the necessary grounds were present, is by relief in a judicial review application. The applicant is before this Court by way of a motion, not an application for judicial review. As well, a review of the material filed on the motion shows that no allegation was made that there was any error made by the CCRA in the issuance of the requirement to pay. As a result, I am not prepared to grant an order quashing the requirement to pay.
[18] The applicant has also, by way of motion, asked for injunctive relief against the CCRA which would prevent the CCRA from taking any further collection proceedings against the applicant. This Court is empowered to grant injunctions pursuant to sections 18 and 18.1 of the Federal Court Act, supra. However, the Court is prohibited from granting this relief if there is an appeal to, in this case, the Tax Court of Canada. A Notice of Objection to the assessment has been filed by the applicant with the Minister (subsection 301(1.1) of the Excise Tax Act, supra). The Minister can vacate or confirm the assessment or make a reassessment. The Minister's decision can be appealed to the Tax Court of Canada (section 302 of the Excise Tax Act, supra). It should also be noted that paragraph 301(4) of the Excise Tax Act, supra allows the applicant to waive the step involving a reconsideration by the Minister (subsection 301(3) of the Excise Tax Act, supra) and go directly to an appeal before the Tax Court. I am of the view that since an appeal to the Tax Court is available, this Court has no jurisdiction to grant injunctive relief.
[19] The applicant has submitted that subsection 17(1) of the Federal Court Act, supra gives this Court jurisdiction to grant the relief sought. Even if the applicant is correct, it cannot obtain this relief as Rule 372 of the Federal Court Rules, 1998, supra only allows a motion for interlocutory injunctive relief before the commencement of a proceeding if a party undertakes to commence the proceeding within the time fixed by the Court (Rule 372(2)). No statement of claim was filed by the applicant within the time set at the hearing of the motion. With respect to utilizing subsection 17(1) of the Federal Court Act, supra to obtain an order quashing the payment requirements issued by CCRA, if subsection 17(1) empowers this relief, the applicant would have had to at least claim this relief in a statement of claim which it has not done.
[20] Even if an interlocutory injunction could be issued by this Court notwithstanding Rule 372(2) of the Federal Court Rules, 1998, supra, the applicant would be required to establish that:
1. There is a serious issue to be tried.
2. It will suffer irreparable harm if the relief is not granted.
3. The balance of convenience considering the total situation of both parties favours the granting of the injunction.
(See Toth v. Canada (Minister of Employment and Immigration) (1988) 86 N.R. 302 (F.C.A.)). I am not persuaded that a serious issue exists to be tried thus, no injunctive relief could be granted.
[21] The applicant's motion is therefore dismissed.
ORDER
[22] IT IS ORDERED that the time for serving and filing this notice of motion is abridged.
[23] AND IT IS ORDERED that the remainder of the applicant's motion is dismissed.
"John A. O'Keefe"
J.F.C.C.
Ottawa, Ontario
September 28, 2001