Abstract
Using the Supreme Court of Canada’s recent decision in Murray-Hall v. Québec (Attorney General) as a focal point, this paper tracks the evolution and intersection of the federal criminal law power and the provincial health law power in Canadian federalism cases. Part II of the paper examines existing methods used to prescribe plenary powers, including interpretative narrowing (formalism), expansion of concurrent federalism (double aspect), and purpose review (colourability). The paper shows that the Supreme Court of Canada has applied these prescriptions to the federal criminal law power but rarely to the provincial health law power. Part III looks around the corner to hard cases at the intersection of criminal law and health law that may make their way to the Supreme Court of Canada: (1) bans on medically recommended healthcare treatment for trans children in Alberta, and (2) involuntary addiction treatment of competent adults who use drugs in New Brunswick. The main claim of the paper is that the Supreme Court of Canada’s present approach to prescribing plenary powers at the intersection of criminal law and health emboldens provinces to enact quasi-criminal legislation with limited connection to health and substantial rights infringements.
Citation Information
Perryman, Benjamin.
"Prescribing Plenary Powers:The Evolution and Intersection of Criminal andHealth Jurisdiction in Canadian Federalism."
The Supreme Court Law Review, Third Series: Osgoode's Annual Constitutional Cases Conference
5.
(2026).
DOI: https://doi.org/10.60082/2563-8505.1010
https://digitalcommons.osgoode.yorku.ca/sclr-third-series/vol5/iss1/11
Creative Commons License

This work is licensed under a Creative Commons Attribution-Noncommercial-No Derivative Works 4.0 License.
References
1 In Canada, where a provincial law conflicts with a federal law - either it is impossible to simultaneously comply with both laws or because the provincial law frustrates the purpose of a federal law - the paramountcy doctrine provides that the federal law governs and the provincial law is rendered inoperable to the extent of the conflict: Alberta (Attorney General) v. Moloney, [2015] S.C.J. No. 51, 2015 SCC 51, at para. 18 (S.C.C.).
2 W. R. Lederman, "Unity and Diversity in Canadian Federalism: Ideals and Methods of Moderation" (1975) 53:3 Can. B. Rev. 597, at 600.
3 Constitution Act, 1867, 30 & 31 Vict., c. 3, s. 91(27) (U.K.).
4 R. v. Hydro-Québec, [1997] S.C.J. No. 76, [1997] 3 S.C.R. 213, at para. 120 (S.C.C.).
5 R. v. Hydro-Québec, [1997] S.C.J. No. 76, [1997] 3 S.C.R. 213, at para. 121 (S.C.C.); Canadian Charter of Rights and Freedoms, Part I of the Constitution Act, 1982, being Schedule B to the Canada Act 1982 (U.K.), 1982, c.11 [hereinafter the "Charter"].
6 Murray-Hall v. Québec (Attorney General), [2023] S.C.J. No. 10, 2023 SCC 10 (S.C.C.) [hereinafter "Murray-Hall"].
7 See e.g., Reference re Dairy Industry Act (Canada) s. 5(a), [1949] S.C.R. 1, affd [1950] J.C.J. No. 1, [1951] A.C. 179 p (P.C.) (where the federal government unsuccessfully relied on the criminal law power to validate legislation restricting the import butter substitutes, like margarine, because those substitutes were purportedly injurious to public health); Schneider v. The Queen, [1982] S.C.J. No. 64, [1982] 2 S.C.R. 112 (S.C.C.) (where provincial legislation authorizing forced detention and treatment of people dependant on opioids was upheld as a valid use of provincial power over health); R. v. Morgentaler, [1993] S.C.J. No. 95, [1993] 3 S.C.R. 463 (S.C.C.) [hereinafter "Morgentaler"] (where provincial legislation regulating abortion services was found ultra vires because it was a colourable attempt to regulate morality, which falls within the criminal law power); RJR-MacDonald Inc. v. Canada (Attorney General), [1995] S.C.J. No. 68, [1995] 3 S.C.R. 199 (S.C.C.) (where the federal government successfully defended unattributed health warnings on tobacco products as a valid exercise of the criminal law power); Reference re Assisted Human Reproduction Act, [2010] S.C.J. No. 61, 2010 SCC 61(S.C.C.) (where federal legislation prohibiting and limiting assisted reproduction health practices and research was partially upheld as a valid exercise of the criminal law power); Canada (Attorney General) v. PHS Community Services Society, [2011] S.C.J. No. 44, 2011 SCC 44 (S.C.C.) (where the federal health minister's decision to effectively close a safe injection facility, by denying it the statutory controlled substances exemption it needed to operate, was upheld as a valid use of the criminal law power); Reference re Genetic Non‑Discrimination Act, [2020] S.C.J. No. 17, 2020 SCC 17 (S.C.C.) [hereinafter "Reference re Genetic Non-Discrimination"] (where federal restrictions on the use of genetic testing were upheld as a valid exercise of the criminal law power because they protected against health-based discrimination or protected health).
8 See e.g., General Motors of Canada Ltd. v. City National Leasing Ltd., [1989] S.C.J. No. 28, [1989] 1 S.C.R. 641, at 662 (S.C.C.) (where the Supreme Court of Canada added additional factors to the general trade and commerce power test to "ensure that federal legislation does not upset the balance of power between federal and provincial governments").
9 Reference re An Act respecting First Nations, Inuit and Métis children, youth and families, [2024] S.C.J. No. 5, 2024 SCC 5, at para. 98 (S.C.C.); Canadian Western Bank v. Alberta, [2007] S.C.J. No. 22, 2007 SCC 22, at para. 30 (S.C.C.).
10 Québec (Attorney General) v. Canada (Attorney General), [2015] S.C.J. No. 14, 2015 SCC 14, at para. 31 (S.C.C.); Morgentaler, at 496 (S.C.C.).
11 Reference re An Act to Prevent the Profanation of the Lord's Day (Ont.), [1903] J.C.J. No. 1, [1903] A.C. 524, at 331 (P.C.).
12 C. Wilfred Jenks, "The Dominion Jurisdiction in Respect of Criminal Law as a Basis for Social Legislation in Canada" (1935) 13:5 Can. B. Rev. 279, at 280.
13 Reference re Dairy Industry Act (Canada) s. 5(a), [1949] S.C.R. 1, at 49-50 (S.C.C.), affd [1950] J.C.J. No. 1, [1951] A.C. 179 p (P.C.).
14 Eric Adams, "Touch of Evil: Disagreements at the Heart of the Criminal Law Power" (2022) 104 S.C.L.R. (2d) 67, at 88. https://doi.org/10.60082/2563-8505.1426
15 RJR-MacDonald Inc. v. Canada (Attorney General), [1995] S.C.J. No. 68, [1995] 3 S.C.R. 199, at para. 5 (S.C.C.).
16 RJR-MacDonald Inc. v. Canada (Attorney General), [1995] S.C.J. No. 68, [1995] 3 S.C.R. 199, at paras. 32-33 (S.C.C.).
17 Peter W. Hogg & Wade K. Wright, "Canadian Federalism, the Privy Council and the Supreme Court: Reflections on the Debate about Canadian Federalism" (2005) 38:2 U.B.C. L. Rev. 329, at 348.
18 Morris Manning, "Criminalization by Regulation: The Outer Limits of Section 91(27) of the Constitution Act, 1867" (2002) 13 Nat'l. J. Const. L. 309, at 349.
19 Reference re Assisted Human Reproduction Act, at paras. 48-51 (S.C.C.).
20 Reference re Assisted Human Reproduction Act, at para. 52 (S.C.C.).
21 Reference re Assisted Human Reproduction Act, at paras. 53-54 (S.C.C.).
22 Reference re Assisted Human Reproduction Act, at paras. 236-237 (S.C.C.).
23 Reference re Assisted Human Reproduction Act, at para. 280 (S.C.C.).
24 Reference re Assisted Human Reproduction Act, at paras. 282-294 (S.C.C.).
25 Reference re Genetic Non‑Discrimination Act, at paras. 79 & 92 (S.C.C.).
26 Reference re Genetic Non‑Discrimination Act, at para. 138 (S.C.C.).
27 Reference re Genetic Non‑Discrimination Act, at paras. 139-140 & 150 (S.C.C.).
28 Reference re Genetic Non‑Discrimination Act, at paras. 232-233 (S.C.C.).
29 Reference re Genetic Non‑Discrimination Act, at para. 242 (S.C.C.).
30 Murray‑Hall, at para. 66 (S.C.C.).
31 Eric Adams, "Touch of Evil: Disagreements at the Heart of the Criminal Law Power" (2022) 104 S.C.L.R. (2d) 67, at 89. https://doi.org/10.60082/2563-8505.1426
32 John D. Whyte, "Federalism and Moral Regulation: A Comment on Reference re Assisted Human Reproduction Act" (2011) 74:1 Sask. L. Rev. 45, at 57.
33 Bruce Ryder, "The Demise and Rise of the Classical Paradigm in Canadian Federalism: Promoting Autonomy for the Provinces and First Nations" (1991) 36 McGill L.J. 308, at 312.
34 Canada (Attorney General) v. PHS Community Services Society, [2011] S.C.J. No. 44, 2011 SCC 44, at para. 62 (S.C.C.).
35 Hugo Cyr, "Autonomy, Subsidiarity, Solidarity: Foundations of Cooperative Federalism" (2014) 23:4 Constitutional Forum 20. https://doi.org/10.21991/C9SD4R
36 Kate Glover, "Structural Cooperative Federalism" (2016) 76 S.C.L.R. (2d) 45. https://doi.org/10.60082/2563-8505.1328
37 L. M. Leigh, "The Criminal Law Power: A Move Towards Functional Concurrency" (1966) 5:2 Alta. L. Rev. 237. https://doi.org/10.29173/alr1993
38 Dennis Baker, "The Temptation of Provincial Criminal Law" (2014) 57:2 Canadian Public Administration 275, at 281-282. https://doi.org/10.1111/capa.12068
39 Dennis Baker, "The Temptation of Provincial Criminal Law" (2014) 57:2 Canadian Public Administration 275, at 282. https://doi.org/10.1111/capa.12068
40 Schneider v. British Columbia, [1982] S.C.J. No. 64, [1982] 2 S.C.R. 112, at 124 (S.C.C.).
41 Schneider v. British Columbia, [1982] S.C.J. No. 64, [1982] 2 S.C.R. 112, at 124 (S.C.C.).
42 Schneider v. British Columbia, [1982] S.C.J. No. 64, [1982] 2 S.C.R. 112, at 124 (S.C.C.).
43 Schneider v. British Columbia, [1982] S.C.J. No. 64, [1982] 2 S.C.R. 112, at 132 (S.C.C.).
44 Schneider v. British Columbia, [1982] S.C.J. No. 64, [1982] 2 S.C.R. 112, at 132-133 (S.C.C.).
45 Schneider v. British Columbia, [1982] S.C.J. No. 64, [1982] 2 S.C.R. 112, at 130 & 138 (S.C.C.).
46 Schneider v. British Columbia, [1982] S.C.J. No. 64, [1982] 2 S.C.R. 112, at 138 (S.C.C.).
47 Schneider v. British Columbia, [1982] S.C.J. No. 64, [1982] 2 S.C.R. 112, at 142 (S.C.C.).
48 Schneider v. British Columbia, [1982] S.C.J. No. 64, [1982] 2 S.C.R. 112, at 143-144 (S.C.C.).
49 Benedikt Fischer, Cayley Russell &Neil Boyd, "A Century of Cannabis Control in Canada: A Brief Overview of History, Context and Policy Frameworks from Prohibition to Legalization", in Tom Decorte, Simon Lenton & Chris Wilkins, eds., Legalizing Cannabis: Experiences Lessons and Scenarios (New York: Routledge, 2020) 89, at 96. https://doi.org/10.4324/9780429427794-6
50 Cannabis Act, S.C. 2018, c. 16, s. 7; Department of Justice, Cannabis Legalization and Regulation (last updated July 7, 2021), see online: https://www.justice.gc.ca/eng/cj-jp/cannabis/.
51 Murray-Hall, at paras. 73-74 (S.C.C.).
52 Murray-Hall, at para. 45 (S.C.C.).
53 Murray-Hall, at para. 77 (S.C.C.).
54 Murray-Hall, at para. 76 (S.C.C.).
55 See e.g., Reference re Anti-Inflation Act (Canada), [1976] 2 S.C.R. 373 (S.C.C.) (using economic data to evaluate whether hyperinflation constituted an "emergency" sufficient to engage the emergency branch of Parliament's peace, order, and good government power).
56 Morgentaler, at 488 (S.C.C.).
57 Morgentaler, at 490 (S.C.C.).
58 Morgentaler, at 490-491 (S.C.C.).
59 Morgentaler, at 498 (S.C.C.).
60 Morgentaler, at 499 (S.C.C.).
61 Morgentaler, at 503 (S.C.C.).
62 Morgentaler, at 504-505 (S.C.C.).
63 Morgentaler, at 506 (S.C.C.).
64 Morgentaler, at 508 (S.C.C.).
65 Morgentaler, at 510 (S.C.C.).
66 Morgentaler, at 496 (S.C.C.).
67 Morgentaler, at 497 (S.C.C.).
68 Murray-Hall, Record, Volume II, at 156.
69 Murray-Hall, Record, Volume II, at 156.
70 Vendula Belackova, Katinka van de Ven & Michaela Roubalova (Stefunkova), "'More than just counting the Plaints': Different Home Cannabis Cultivation Policies, Cannabis Supply Contexts and Approaches to their Evaluation", in Tom Decorte, Simon Lenton & Chris Wilkins, eds., Legalizing Cannabis: Experiences Lessons and Scenarios (New York: Routledge, 2020) 154, at 154 https://doi.org/10.4324/9780429427794-10; Elle Wadsworth et al, "Home Cultivation Across Canadian Provinces After Cannabis Legalization" (2022) 15 Addictive Behaviors Reports 100423.
https://doi.org/10.1016/j.abrep.2022.100423
71 Journal des débats de la Commission permanente de la santé et des services sociaux, Vol. 44, No. 170 (December 4, 2017), at 11.
72 Murray-Hall, at para. 53 (S.C.C.).
73 Murray-Hall, at para. 56 (S.C.C.).
74 Murray-Hall, at para. 57 (S.C.C.).
75 Murray-Hall, at para. 71 (S.C.C.).
76 Murray-Hall, at para. 36 (S.C.C.). [emphasis in original]
77 W. R. Lederman, "Unity and Diversity in Canadian Federalism: Ideals and Methods of Moderation" (1975) 53:3 Can. B. Rev. 597, at 600.
78 Katherine Swinton, "Federalism Under Fire: The Role of the Supreme Court of Canada" (1992) 55:1 Law and Contemporary Problems 121, at 136. https://doi.org/10.2307/1191760
79 Eric Adams, "Touch of Evil: Disagreements at the Heart of the Criminal Law Power" (2022) 104 S.C.L.R. (2d) 67, at 88. https://doi.org/10.60082/2563-8505.1426
80 Aidan Cox, "N.B. pursuing legislation that could see drug users subject to involuntary treatment", CBC News (September 8, 2023), see online: https://www.cbc.ca/news/canada/new-brunswick/new-brunswick-compassionate-intervention-1.6960753.
81 Jacques Poitras, "Bill on forced addiction treatment will include evaluation process, minister says", CBC News (March 27, 2024), see online: https://www.cbc.ca/news/canada/new-brunswick/bill-forced-addiction-treatment-new-brunswick-1.7157350.
82 Jacques Poitras, "Higgs won't rule out notwithstanding clause for addiction treatment bill", CBC News (April 2, 2024), see online: https://www.cbc.ca/news/canada/new-brunswick/higgs-notwithstanding-clause-addiction-treatment-bill-1.7161415.
83 Mia Urquhart, "Susan Holt leads Liberals to majority, Blaine Higgs loses seat", CBC News (October 21, 2024), see online: https://www.cbc.ca/news/canada/new-brunswick/nbelection-2024-1.7358873.
84 Anna Mehler Paperny and Nia Williams, "Canadian provinces seek to treat more drug users against their will", Reuters (September 26, 2024), see online: https://www.reuters.com/world/americas/canadian-provinces-seek-treat-more-drug-users-against-their-will-2024-09-26.
85 Anees Bahji et al, "Effectiveness of Involuntary Treatment for Individuals With Substance Use Disorders: A Systematic Review" (2023) 14:4 The Canadian Journal of Addiction 6. https://doi.org/10.1097/CXA.0000000000000188
86 D. Werb, "The Effectiveness of Compulsory Drug Treatment: A Systematic Review" (2015) 28 Int. J. Drug Policy 1. https://doi.org/10.1016/j.drugpo.2015.12.005
87 Andreas Pilarinos et al, "Coercion Into Addiction Treatment and Subsequent Substance Use Patterns Among People Who Use Illicit Drugs in Vancouver, Canada" (2019) 115 Addiction 97. https://doi.org/10.1111/add.14769
88 Scott Hadland et al, "Evidence-Based Treatment for Young Adults with Substance Use Disorders" (2021) 147:Suppl. 2 Pediatrics S204. https://doi.org/10.1542/peds.2020-023523D
89 Michael S. Sinha, John C. Messinger & Leo Beletsky, "Neither Ethical Nor Effective: The False Promise of Involuntary Commitment to Address the Overdose Crisis" (2020) 48:4 The Journal of Law, Medicine & Ethics 741. https://doi.org/10.1177/1073110520979384
90 Danielle Smith, X (formerly Twitter) post (January 31, 2024) see online: https://x.com/ABDanielleSmith/status/1752814944716734935.
91 Nicholas Frew, "Premier's announcement on transgender policies surprised Alberta Health Services advisory group", CBC News (April 30, 2024), see online: https://www.cbc.ca/news/canada/edmonton/alberta-ahs-transgender-policies-danielle-smith-1.7186280.
92 Health Statutes Amendment Act, 2024 (No. 2), S.A. 2024, c. 16, s. 9.
93 Lisa Johnson, "Alberta Premier Smith willing to use the notwithstanding clause on trans health bill", CBC News (December 15, 2024), see online: https://www.cbc.ca/news/canada/calgary/alberta-premier-smith-willing-to-use-the-notwithstanding-clause-on-transhealth-bill-1.7411263.
94 Egale Canada et al. v. Alberta (Attorney General), Originating Application, Court File No. 2401 17719 (Alta. K.B.).
95 Ashley Vandermorris & Daniel L. Metzger, "Position Statement: An affirming approach to caring for transgender and gender-diverse youth" (2023) 28 Paediatrics & Child Health 437. https://doi.org/10.1093/pch/pxad045
96 Landon D. Hughes et al, "'These Laws Will Be Devastating': Provider Perspectives on Legislation Banning Gender-Affirming Care for Transgender Adolescents" (2021) 69:6 Journal of Adolescent Health 976 https://doi.org/10.1016/j.jadohealth.2021.08.020; Harry Barbee, Cameron Deal & Gilbert Gonzales, "Anti-Transgender Legislation - A Public Health Concern for Transgender Youth" (2021) 176:2 J.A.M.A. Pediatrics 125
https://doi.org/10.1001/jamapediatrics.2021.4483; Luke R. Allen et al, "Well-being and Suicidality Among Transgender Youth After Gender-Affirming Hormones" (2019) 7:3 Clinical Practice in Pediatric Psychology 302 https://doi.org/10.1037/cpp0000288; Riittakerttu Kaltiala et al, "Adolescent Development and Psychosocial Functioning After Starting Cross-Sex Hormones for Gender Dysphoria" (2020) 74:3 Nord. J. Psychiatry 213. https://doi.org/10.1080/08039488.2019.1691260
97 Jeremi M. Carswell, Ximena Lopez & Stephen M. Rosenthal, "The Evolution of Adolescent Gender-Affirming Care: An Historical Perspective" (2022) 95 Hormone Research in Paediatrics 649, at 654. https://doi.org/10.1159/000526721
98 Morgentaler (S.C.C.); A.C. v. Manitoba (Director of Child and Family Services), [2009] S.C.J. No. 30, 2009 SCC 30 (S.C.C.).
99 New Brunswick (Minister of Health and Community Services) v. G. (J.), [1999] S.C.J. No. 47, [1999] 3 S.C.R. 46, at para. 58 (S.C.C.); Carter v. Canada (Attorney General), [2015] S.C.J. No. 5, 2015 SCC 5, at paras. 66-68 (S.C.C.).
100 UR Pride Centre for Sexuality and Gender Diversity v. Saskatchewan (Minister of Education), [2023] S.J. No. 345, 2023 SKKB 204, at para. 98 (Sask. K.B.).
101 Reference re Assisted Human Reproduction Act, at para. 291 (S.C.C.); See e.g., An Act to amend the Criminal Code (conversion therapy), S.C. 2021, c. 24 (where Parliament enacted legislation to amend the Criminal Code to ban any practice, treatment or service designed to change or repress a person's sexual orientation, gender identity, or gender expression).
102 Joanna Wuest & Briana S. Last, "Agents of Scientific Uncertainty: Conflicts Over Evidence and Expertise in Gender-Affirming Care Bans for Minors" (2024) Social Science & Medicine 116533.
https://doi.org/10.1016/j.socscimed.2023.116533
103 John Pratt, Penal Populism (New York: Routledge, 2007); John Pratt, Populism, Punishment and the Threat to Democratic Order: The Return of the Strong Men (New York: Routledge, 2023); Emma Bell, "Seizing the Populist Moment: Towards a New Penal Politics?" (2022) 62:5 British J. of Crim. 1077; James B. Kelly & Kate Puddister, "Criminal Justice Policy During the Harper Era: Private Member's Bills, Penal Populism, and the Criminal Code of Canada" (2017) 32:3 Canadian Journal of Law and Society 391; Brian Budd, "Maple-Glazed Populism: Political Opportunity Structures and Right-Wing Populist Ideology in Canada" (2021) 55:1 Journal of Canadian Studies 152.
104 Mikey Elster, "Insidious Concern: Trans Panic and the Limits of Care" (2022) 9:3 T.S.Q. 407 https://doi.org/10.1215/23289252-9836064; Fran Amery & Aurelien Mondon, "Othering, peaking, populism and moral panics: The reactionary strategies of organised transphobia" (2024) Sociological Review https://doi.org/10.1177/00380261241242283; Amy L. Stone, "Gender panics about transgender children in religious right discourse" (2018) 15:1 Journal of LGBT Youth 1 https://doi.org/10.1080/19361653.2017.1395305; Van Slothouber, "(De)trans visibility: moral panic in mainstream media reports on de/retransition" (2020) 24:1 European Journal of English Studies 89 https://doi.org/10.1080/13825577.2020.1730052; Craig McLean, "The Growth of the Anti-Transgender Movement in the United Kingdom. The Silent Radicalization of the British Electorate" (2021) 51:6 International Journal of Sociology 473 https://doi.org/10.1080/00207659.2021.1939946; Andrew C. Billings, Leigh Moscowitz, Joshua R. Jackson et al, "Trans Youth Sport Bans and the Facilitation of Moral Panic: A Cross-Platform Comparison of 2022 Media Narratives" (2024) Mass Communication and Society 1 https://doi.org/10.1080/15205436.2024.2313109; Sally Hines, "Sex wars and (trans) gender panics: Identity and body politics in contemporary UK feminism" (2020) 68:4 Sociological Review 699. https://doi.org/10.1177/0038026120934684
105 The Education (Parents' Bill of Rights) Amendment Act, S.S. 2023, c. 46, s. 197.4; Government of New Brunswick, Statement regarding intervener status (June 7, 2024), see online https://www2.gnb.ca/content/gnb/en/news/news_release.2024.06.0250.html; Eleni Nicolaides & Dave Snow, "A Paper Tiger No More? The Media Portrayal of the Notwithstanding Clause in Saskatchewan and Ontario" (2021) 54 Canadian Journal of Political Science 60.
https://doi.org/10.1017/S0008423920000876
106 But see UR Pride Centre for Sexuality and Gender Diversity v. Saskatchewan (Minister of Education), [2024] S.J. No. 36, 2024 SKKB 23 (Sask. K.B.) (where the Saskatchewan Court of King's Bench held, in a decision currently under appeal, that pre-emptive use of the notwithstanding clause did not remove its jurisdiction to engage in Charter review).
107 Thomas Kleinlein, "Federalisms, rights, and autonomies: The United States, Germany, and the EU" (2018) 15:4 International Journal of Constitutional Law 1157, at 1162. https://doi.org/10.1093/icon/mox078
108 Thomas Kleinlein, "Federalisms, rights, and autonomies: The United States, Germany, and the EU" (2018) 15:4 International Journal of Constitutional Law 1157. https://doi.org/10.1093/icon/mox078