Date: 19990219
Dockets: 98-486-UI; 98-84-CPP
BETWEEN:
JOHN WIDDOWS O/A GOLDEN EARS ENTERTAINMENT,
Appellant,
and
THE MINISTER OF NATIONAL REVENUE,
Respondent,
and
JOANNE J. FERRARI,
Intervenor.
Reasons for judgment
Rowe, D.J.T.C.C.
[1] The appellant appealed from a decision by the Respondent
dated January 21, 1998 which found the intervenor, Joanne
Ferrari, to have been in insurable and pensionable employment
with the appellant for the periods June 4 to July 25, 1996,
August 27 to August 29, 1996, September 10 to December 19, 1996,
January 7 to March 13, 1997 and March 25 to June 5, 1997. The
decision was issued pursuant to section 93 of the Employment
Insurance Act and subsection 6(1) of the Canada Pension
Plan and was based on paragraph 5(1)(a) of the
Employment Insurance Act and paragraph 3(1)(a) of
the Unemployment Insurance Act.
[2] The parties agreed the result in the within appeal would
apply to the appeal of the appellant - 98-84(CPP) - and the
intervention, therein, of Joanne J. Ferrari.
[3] The appellant testified he resides in Maple Ridge, British
Columbia and, in March, 1988, began operating a music business
under the trade name, Golden Ears Entertainment. The business
consisted of approximately 2,500 square feet located in a strip
mall in Maple Ridge. From that space, the appellant sold guitars,
drums, amplifiers, brass and woodwind accessories and rented
sound and lighting equipment. In addition, the premises had
studios which were used for music instruction featuring 13
different instruments. The lessons were taught by various
teachers, including Joanne Ferrari who began teaching at Golden
Ears in 1991. The appellant stated the rates charged for the
lessons were set by him and the school administrator employed by
Golden Ears after consulting the teachers. He stated Ferrari had
advised him of the amount she wished to receive for her
instruction and the rates for the lessons were structured
according to the nature of the program. Filed as Exhibit A-1, was
a brochure of Golden Ears Music issued for 1998. The appellant
stated Golden Ears collected the tuition from the students and/or
their parents and the rates charged for the lessons had to be
competitive with those offered by individuals who provided
lessons by using a studio in their own homes. The rate paid to
Joanne Ferrari and other teachers was $10.00 per half-hour and,
for teaching theory, $6.00 per student. The classes in music
theory might have four students and would last one hour. In
the event a parent was not satisfied with the instruction
received by a child and a refund was given or if a cheque was not
honoured by the bank or if payment was not made for some lessons,
then any amounts resulting from these occurrences were deducted
from the next cheque paid to a teacher. The music school part of
the business - involving 160 students - was administered by the
school administrator and the appellant concentrated on the retail
aspect of the business which was operated out of the front of the
store. Prior to opening the store, the appellant had worked as a
tenor and is still active as a performer. The appellant stated
his premises had a studio equipped with a piano but the teachers
brought some of their own books and material which were used in
teaching lessons. One teacher used her own accordion to teach
lessons. There was a weekly schedule of instruction which
fluctuated due to cancellations and students moving in and out of
the area. A teacher was paid only if a student had actually
received instruction and payment had been made to Golden Ears
Music for that lesson. During the summer, excluding August, the
appellant stated Joanne Ferrari taught one or two hours per week.
However, commencing in September, she would teach 33 students
one-half hour lessons for a total of 16.5 hours per week. An
attendance book containing a list of students was maintained and
it was used as a billing aid. The teachers did not submit
invoices to Golden Ears as the attendance book was used for
purposes of payment and the appellant stated he merely multiplied
the hours taught by a particular teacher by the agreed rate.
Filed as Exhibit A-2, was a cheque dated November 28, 1996 paid
to Joanne Ferrari in the sum of $335.50 which represented 26
hours @ $10.00 per hour, 5 music theory students @ $6.00 and
teaching 13 children in a Discovering the Arts class @ $3.50 per
student. The appellant filed - as Exhibit A -3 - a letter dated
January 2, 1999 in which Linda Armstrong - the office
administrator of Golden Ears Music School - set out details of
the method of operation as it pertained to the music teachers,
including Joanne Ferrari. The appellant stated the letter
accurately set forth the policies of his business as it related
to the teachers and added the teachers would handle substitution
of teaching sessions in a variety of ways. On occasion, the
teacher would attempt to find a substitute and if that was not
possible the school administrator would be advised and she would
undertake efforts to locate a replacement. The appellant
explained it was much easier to substitute instruction early on
in a program but as the relationship developed between the
teacher and the student it was more practical to re-schedule
lessons so as to maintain the contact between the parties. The
appellant stated the nature of the music instruction business, as
carried on by him under the trade name Golden Ears Music School,
was flexible and he did not operate on the basis of "my way
or the highway". He stated Joanne Ferrari taught other
students in her own home and also taught at a school and for the
Parks and Recreation Department at Maple Ridge. The issue whether
she could have taught music lessons concurrently at a
competitor's school never arose. The appellant advised the
music school produced $85,000 revenue out of a total of $220,000
and he is currently considering whether he should discontinue
offering music instruction as part of his business. In earlier
years, the retail revenue had been in greater proportion to the
teaching income. He stated he never issued any T4 slips to any
teacher but - out of courtesy - they were provided with a
print-out of earnings for the previous year. When Revenue Canada
conducted an audit, he provided a list of teachers who had taught
students at Golden Ears Music. Joanne Ferrari had begun teaching
at his school in 1991 and worked until June 5, 1997. He stated no
teacher had ever requested to rent the studio on a separate basis
and none of them wanted to deal with collecting tuition for the
lessons or to be involved with re-scheduling or other
administrative duties. There were three employees for whom the
usual deductions were made from salary, including Linda
Armstrong, the school administrator. There was no incentive
offered to teachers to bring in their own students although
Ferrari, upon termination of their working relationship, declared
she was taking some of her "students" with her and some
did, in fact, leave Golden Ears. The appellant advised he
continues to operate his business on the same basis and the
question of Goods and Services Tax does not arise as music
lessons are an exempt supply. The teachers set the curriculum in
accordance with the wishes of the student/parent and it is of no
concern to him what particular form of study is being undertaken
by a student. He did not set the number of students per class and
relied on the professional experience of the teachers. Although
he had done some teaching in the past, he did not feel he was
nearly as qualified as the teachers engaged by his school. He
categorized the working relationship between himself - as owner
of the business - and all the teachers as being one which was
governed by a "gentleman's agreement".
[4] In cross-examination, the appellant stated the school
administrator prepared a weekly schedule based on one-half hour
lessons which was common in the industry. He stated it was Joanne
Ferrari who determined the appropriate length of the music
discovery class for children would be 45 minutes. Many of the
teachers were familiar with rates charged at other music schools
and he relied on input from them before setting rates. In order
to increase the rates of payment to his teachers, he would have
to increase the rate charged to the student or, on occasion,
would absorb the extra cost even in the face of shrinking profit
margins. Usually, parents would deal directly with a teacher
concerning matters involving music instruction but any financial
issues were handled by himself. Even though Golden Ears sold
music books, many students used materials which had been
purchased elsewhere. He did not provide Ferrari with any
instructional material. He explained he set up a card system to
record attendance and also developed an evaluation process to
provide parents with some information as to progress but not for
the purpose of identifying levels of achievement. The concept was
that it would serve as a medium by which information could be
relayed to a parent and some teachers utilized the Progress
Report - Exhibit R-1- while others did not. He had been operating
the business for two or three years before Joanne Ferrari was
hired as a teacher and he cannot recall details of their meeting.
The period of engagement was indeterminate but it was on the
basis the teaching season ended in June and started again in
September of each year. The appellant stated he did not recall
any discussions with Ferrari concerning deductions for
unemployment insurance or Canada Pension Plan but it was apparent
that no deductions were ever taken from her cheques. He never
offered any advice to the teachers on income tax matters and
advised that - in 12 years - only Joanne Ferrari had ever -
ultimately - complained of the working arrangement between his
business and themselves. He accepted he had - at all times -
the authority to fire Ferrari and did terminate her engagement at
the school. She had given notice of her intention to leave and a
teacher was hired to replace her in order to carry on instruction
for the remaining four or five students. The cancellation policy
in effect was that if a student did not attend a scheduled
session, then a make-up lesson was scheduled and the teacher
taught that session without any payment. The school utilized the
services of 10 or 11 teachers to provide music instruction to
approximately 160 students. There are a total of seven rooms used
for teaching. Throughout their working relationship, he never
regarded Ferrari as an employee even though he had used that term
when writing letters of reference - Exhibits R-2 and
R-3 - on her behalf when she was seeking admission to Washington
State University and he did not put any thought to using the word
"employee" in any legal sense as the intent was merely
to advise an interested party about Ferrari's abilities and
work habits.
[5] The appellant - by way of re-examination - testified he
had paid Ferrari once a month for many years and recalled that
during one period of financial trouble when one cheque did not
clear the bank in September, 1995 she confronted him and was very
angry. As a result, he began paying her once a week - in cash -
for her instruction. He explained the problem with the payment by
cheque on that occasion - and one other - was rectified promptly
and she suffered no loss.
[6] Joanne Ferrari testified that, since age 14, she had
worked as a music teacher. She began working at Golden Ears in
1990 and prior to that had been working at Coquitlam Music. She
had taken a resumé‚ to Golden Ears store after she
and her family had started construction of a house in Maple
Ridge. She worked one day a week - as a kindergarten teacher - at
a Montessori school and also taught music to students in her own
home. In addition, she taught a class for the Arts Council of
Maple Ridge and did so on the basis of purporting to be an
independent contractor pursuant to an agreement she had signed.
She stated the appellant had informed her he was looking for a
teacher to fill in during an absence of another instructor but it
would result in a permanent position for her. He advised her the
pay was $10.00 per one-half hour and she was to file her income
tax on the basis of being self-employed. At Coquitlam Music, she
had been paid on the basis of being an employee and the usual
deductions were taken from her pay cheques. Her method of working
at both places was fundamentally the same as was the method used
to calculate her pay. She stated she asked the appellant a
"couple of times" to take employee deductions from her
cheque and he replied that it involved too much bookkeeping. She
advised the Montessori school did not take any deductions from
her cheque on the basis that she was only "temporary"
and worked only one day per week. Ferrari stated the students
were the students of Golden Ears and payment for their lessons
was made directly to the school. She was requested to prepare
progress reports for her students and did so. Throughout her
working relationship with Golden Ears, she reported income on the
basis of being self-employed with income from several different
sources and took the usual deductions available to those who are
operating a business including some expenses for using her home
to teach students. When the appellant advised her the business
was not producing adequate revenue, she suggested organizing a
class for small children to teach music discovery and he agreed.
When their relationship ended, he asked her to continue for a
specified time and she agreed but a new teacher was assigned by
him to sit in on her class. Then, another dispute arose and she
left but did not take any students with her. Later, when some
parents requested that she teach their children she did so from
her home.
[7] In cross-examination by the appellant, Joanne Ferrari
stated she teaches private lessons currently and does so in the
homes of the students. No deduction is made from her cheque by
any payor and she regards herself as self-employed. While at
Golden Ears, Ferrari stated the rates were set by the appellant
and that she had a degree from the University of Washington and
had also worked as a kindergarten teacher for 10 years. During
her 7 years at Golden Ears, she thought there had been some
students who had come to the music school - to be taught by her -
as a result of word-of-mouth referral. When teaching for the Arts
Council, she merely walked into the class and taught the
established course as the equipment and instruments had all been
provided by the Council. At Golden Ears, she agreed to bring in
some rhythm instruments for teaching young children and the
school provided the drum, sticks and pad. Ferrari stated she had
requested T4 slips from the appellant but none were ever issued
to her.
[8] The appellant submitted he had an ongoing operation which
was carried out - without any hassle - on the basis the teachers
were self-employed individuals engaged in carrying on the
business of providing music instruction to students at his school
and elsewhere as they chose. They had a high degree of control
over their schedule and total autonomy in content of the
lessons.
[9] Counsel for the respondent submitted a review of the
evidence would reveal the nature of the working relationship was
such that Joanne Ferrari was clearly an employee working under a
contract of service during the relevant periods and the decision
of the respondent was correct.
[10] In Wiebe Door Services Ltd. v. M.N.R., 87 DTC
5025, the Federal Court of Appeal approved subjecting the
evidence to the following tests, with the admonition that the
tests be regarded as a four-in-one test with emphasis on the
combined force of the whole scheme of operations. The tests
are:
1. The Control Test
2. Ownership of Tools
3. Chance of Profit or Risk of Loss
4. The Integration Test
[11] The worker, Joanne Ferrari, was a qualified music teacher
with many years experience and, as a kindergarten teacher, was
accustomed to teaching young children. The appellant was
extremely knowledgeable in various aspects of the music business
and has also taught music lessons although he did not see himself
as well qualified as Ferrari or the other teachers. There was not
a high degree of control exercised over the worker or the other
teachers and one would not expect it in the context of the
services being provided. While the appellant was a benign
taskmaster and seemed to operate on the basis of consensus,
wherever possible, he was the sole proprietor of the music
business which had, as one of its facets, a music school with 160
students. As the owner of the business, he was the person who
determined the overall structure pertaining to delivery of the
music lessons and calculated the amount that had to be charged as
fees in order to have the total business - the retail space and
the music school - continue to function as a profitable entity.
All matters involving money as it related to tuition or refunds
to students or collecting outstanding amounts were dealt with by
him and not the worker. The policy of requiring a teacher to make
up a missed lesson - without compensation -was one set by him.
The scheduling and arrangements for substitute teaching, if
necessary, was done by the school administrator who was an
employee of the appellant, although there was considerable input
from the teachers and efforts were made to accommodate their
wishes.
[12] Although the worker brought in her own teaching
materials, the remainder of the necessary tools, including a
piano and related equipment, were provided by the appellant and
the studios in which lessons were taught were an integral part of
the premises operated by the appellant as a business having a
significant retail component.
[13] The worker was paid at a rate fixed - albeit by
negotiation - with the appellant and the only relevant aspect of
risk of loss lay in the requirement that a teacher be responsible
- temporarily, at least - for the amount of any N.S.F. cheque
that may have been given to Golden Ears for payment of a lesson.
One cannot transform a relationship into that of independent
contractor by unilaterally imposing a condition that would
probably violate a provision of the relevant labour legislation
applicable to an individual having the status of employee. As the
concept of chance of profit is used in these matters, there was
none for the worker within the structure of her working
relationship with the appellant. She was paid a set price per
unit of work or an amount based on a calculation derived from the
number of pupils in a class.
[14] In terms of integration, there is no doubt the business
being carried on was the business of the appellant operating as a
sole proprietor. When a student or a parent of a child wanted
music lessons, all arrangements to that end were made with the
appellant or his school administrator. The hostility surrounding
the termination of the working relationship of the appellant and
the worker which had endured for more than 7 years was due
largely to the apprehension of the worker that the appellant was
attempting to take with her certain students as though they were
her students and not individuals who were bound by contract to
his business operating as Golden Ears Music School. The teaching
of lessons was carried out within the same premises as the retail
store and the selling of instruments and music supplies
constituted the overall business of the appellant and he
integrated these revenue-producing components into the total
structure. It would be completely illogical to regard the
teaching of a student by the worker under the circumstances
revealed by the evidence as the furtherance of Ferrari's own
business in a school bearing the name of the appellant's sole
proprietorship in premises leased by him in a commercial centre
when all financial aspects of the teacher-student relationship
were conducted directly with the appellant. There was a lot more
to the music instruction business than what transpired in a
studio during a half-hour session although it is clear the
instruction was an integral part of the revenue-producing
component of the business which relied on charging fees to
students. The school administrator was not engaged to merely
co-ordinate activities of a dozen independent contractors
who were retained to provide music lessons each within the
context of a separately owned business. Again, one must look at
the overall nature of the business organization operated by the
appellant and the interplay between that operation and the
services provided by the worker.
[15] What the parties thought their relationship was will not
change the facts. In the case of The Minister of National
Revenue v. Emily Standing 147 N.R. 238, Stone J.A. at pages
239-240 stated:
"There is no foundation in the case law for the
proposition that such a relationship may exist merely because the
parties choose to describe it to be so regardless of the
surrounding circumstances when weighed in the light of the
Wiebe Door test."
[16] In the case of Whistler Mountain Ski Club v.
M.N.R., unreported, 95-1723(UI), August 2, 1996, the
Honourable Judge Sobier, Tax Court of Canada, heard the appeal
from assessments against the appellant, a Society, who had hired
persons to coach alpine events and had done so on the
understanding the coaches were independent contractors pursuant
to a written contract. Judge Sobier found, inter alia, the
following facts:
- the coaches were not supervised and were entitled to hold
other jobs and work for others outside the time they were
coaching for the appellant;
- the coaches supplied their own equipment and
accessories;
- classes were assigned to them and they were teaching classes
to improve alpine racing skills;
- the coaching schedule was closely tied to the racing
schedule which was determined by an outside authority prior to
the beginning of each season;
- the coaches were paid a fixed amount on a per diem or
monthly basis and invoiced the appellant twice per month for the
number of days worked during those periods but the rate did not
change depending on the number of persons in the class;
- the coaches could not subcontract out their duties but could
make some alternate arrangements with the appellant's
permission;
- the coaches were able to take courses to improve or upgrade
their qualifications, generally at their own expense.
[17] After referring to the decision in Wiebe Door,
supra, Judge Sobier, at p. 6, stated:
"The tests set out by MacGuigan J. are tests which had
been used before. It is how they were to be examined which led
him to the conclusion arrived at. The tests are control,
ownership of tools, chance of profit and risk of loss. In
themselves, these tests are not conclusive. He said at page 5029
of Wiebe Door Services Ltd. (supra):
I am inclined to the same view, for the same reason. I
interpret Lord Wright's test not as the fourfold one it is
often described as being but rather as a four-in-one test, with
emphasis always retained on what Lord Wright, supra, calls
"the combined force of the whole scheme of operations",
even while the usefulness of the four subordinate criteria is
acknowledged.
He was also remarking on the fact that the control tests alone
shall not be applied. At page 5029, he referred to Morren v.
Swinton & Pendlebury Borough Council [1965] 1 W.L.R. 576,
where
...Lord Parker stated that the control test was perhaps an
over-simplification. His Lordship added that: "clearly
superintendence and control cannot be the decisive test when one
is dealing with a professional man, or a man of some particular
skill and experience." Thus the courts started modifying and
transforming the test into "common sense" test.
[Somervell L.J. in Cassidy v. Minister of Health [1975] 2
K.B. 343] or "multiple" test [Mocatta J. in
Whittaker v. Minister of Pensions & National Insurance
[1967] 1 Q.B. 156].
Supervision or control of how a professional or expert
performs his functions cannot be said to be control since the
professional generally knows more about his functions than his
employer. He can however exercise control over his employee by
setting his hours of employment, his place of employment, whether
he can come and go at his own wish.
I am in agreement with the reference made at page 5030 of
Wiebe Door Services Ltd. (supra), to Professor P.S. Atiyah
when he said:
It is exceedingly doubtful whether the search for a formula in
the nature of a single test for identifying a contract of service
any longer serves a useful purpose. ...The most that can
profitably be done is to examine all the possible factors which
have been referred to in these cases as bearing on the nature of
the relationship between the parties concerned. Clearly not all
of these factors will be relevant in all cases, or have the same
weight in all cases. Equally clearly no magic formula can be
propounded for determining which factors should, in any given
case, be treated as the determining ones. The plain fact is that
in a large number of cases the court can only perform a balancing
operation, weighing up the factors which point in one direction
and balancing them against those pointing in the opposite
direction. In the nature of things it is not to be expected that
this operation can be performed with scientific accuracy.
I conclude that the four tests must be kept in mind but they
are not fixed and immutable tests which must be examined as if
they were shapes which one must fit into the appropriate holes.
They are tools and not the end in themselves. This of course was
shown in the paragraph above concerning control.
In the case at bar the coaches were told who they would
instruct, when and where the instruction was to be given. They
were not able to come and go as they pleased. It is an
entrepreneur who takes risks, not an employee. An entrepreneur
may say: "If I work hard and long, my efforts will be
rewarded". He will say: "The more people I coach, the
more I will earn". On the other hand, compensation on piece
work or commission basis does not determine self-employment if
the employer sets the other standards and otherwise controls the
employee. Here, the coach cannot earn more than his per diem or
per month rate. If his group shrinks because of non-attendance of
athletes, his rate is not reduced. Here, no matter how few or how
many hours worked, no matter how few or how many athletes he
coached, he earns the same amount. The coaches are assigned
groups and told when to coach them. He may not include outsiders
into his group. He risks no loss."
[18] After an analysis of the effect of a purported assignment
of status pursuant to written contract, Judge Sobier then
continued, at p. 8, as follows:
"Because one is engaged on a part-time basis does not
mean that one is not an employee. One may have several part-time
jobs and still be an employee in all of them.
When one asks the question - "Whose business is
it?", counsel for the Appellant invites the Court to say
that ski coaching is the business of the coach and if the coach
does not produce results, he will loose [sic] his client -
the ski club. However, this argument is just as applicable, if
not more so, to the argument that the ski club's business was
that of producing racers and the coaches are its employees.
The coaches are not permitted any of the leeway or latitude
afforded independent contractors. They cannot coach others at the
same time as they coach members of the club. Their first duty is
to the ski club and not themselves. They do not provide the
sophisticated equipment required for use in coaching. The club
owns and provides this equipment."
[19] In the cases of Jannine Puri v. M.N.R. -
96-2519(UI) - and Rae Anne Hesketh v. M.N.R. -
96-2520(UI) - I dealt with the appeals of two figure skating
coaches who were teaching certain classes in the arena under a
contract with The Campbell River Skating Club, a non-profit
society. The workers there also derived income from other sources
including teaching students on a private basis without any
connection to the Skating Club but this occurred only after the
requirements of the contract between the coaches and the Club had
been satisfied. I found they were employees of the Club and were,
therefore, in insurable employment notwithstanding the wishes of
all parties for them to be considered as independent contractors
while teaching lessons within the structured programs offered by
the Club. In that judgment, at page 11, I observed:
"The reality of the modern workplace is that people often
have a mixture of income-producing activities arranged in a
variety of permutations and combinations. Some have a full-time
job and one or more part-time jobs and others have five or six
part-time or casual, non-repeating, sources of income, all of
which are on the basis of being an employee. Still others are an
employee - either full time or part time at one or more jobs -
and also operate a business or provide a service as an
entrepreneur. In recognition of the changing workplace,
Parliament enacted the Employment Insurance Act which was
assented to on June 20, 1996. Under the new legislation, the
insurance system is changed from one based on weeks of work -
with a weekly minimum and maximum on insurance coverage - to a
system based on total earnings and total hours worked in which
every dollar earned, from the first hour on the job, is counted.
The intent was to move to a system which is more compatible with
the current labour market. The rules for determining status of an
individual within a working relationship, however, remain the
same. It is extremely confusing for persons - whether employers
or employees - to know where they stand in situations where it is
not a simple black-and-white case of categorizing the services
provided. There is a natural tendency to look at the overall
income earned during a year and to assign a status to a working
relationship based on the amount of revenue generated from
providing that particular service. Then, there is the pervasive
urban myth - regrettably extending to high levels in both the
public and private sectors - in which it is believed a person
discharged from a position, occupied for years as an employee,
and then hired back "on contract" to sit at the same
desk and do the same work is no longer an employee but has been
magically transformed into an independent contractor."
[20] Having regard to all of the evidence and applying the
tests in the manner directed by the Federal Court of Appeal in
Wiebe, supra, I conclude the worker, Joanne
Ferrari, was an employee of the appellant during the relevant
period and was providing services pursuant to a contract of
service. The within appeal is dismissed together with appeal
98-84(CPP) and the decision of the Respondent is hereby
confirmed.
Signed at Sidney, British Columbia, this 19th day of February
1999.
"D.W. Rowe"
D.J.T.C.C.