Date: 20130227
Docket: T-830-08
Citation: 2013 FC 197
Ottawa, Ontario, February 27, 2013
PRESENT: The Honourable Mr. Justice Mandamin
BETWEEN:
|
CHARLES
O'HARA
|
|
|
Applicant
|
and
|
|
THE
MINISTER OF NATIONAL REVENUE
|
|
|
Respondent
|
|
|
|
REASONS
FOR JUDGMENT AND JUDGMENT
Introduction
[1]
This is an application for judicial review of a Tax Payer
Relief Review Decision dated April 28, 2008. The Applicant, Mr. Charles O’Hara,
had filed a request for tax payer relief pursuant to sections 281.1(1) and (2)
of the Excise Tax Act, RSC 1985, c E-15 (ETA).
[2]
While the Canada Revenue Agency (the CRA) determined
interest that was charged in respect of Mr. O’Hara’s Director’s Liability
Assessment No. 06692 from July 7, 1997 to August 23, 2005 was to be cancelled,
as well as the accrual of interest charged on the assessment from December 5, 2006
to the date of the letter, the CRA held the penalties charged in respect of the
original assessment would not be waived.
[3]
I conclude the CRA decision is unreasonable for reasons
that follow.
Background
[4]
The Applicant, Charles O’Hara, was an officer and director
of 819636 Ontario Inc. (the “Corporation”). The other officer and director of
the Corporation was Nicola DiLorenzo.
[5]
The Applicant and DiLorenzo planned the construction of a
senior citizens home in Ajax, Ontario through the Corporation. The Applicant
and DiLorenzo hired Philip Weinstein (Weinstein), a chartered accountant, to
administer the total financial area of the project.
[6]
Financing of the project was arranged through Royal Life
Insurance Company for which Zurich Indemnity Company (Zurich) was the surety or
guarantor. Pursuant to its contractual rights, Zurich appointed monitors to
take over the project’s finances and took control of the Corporation’s bank
accounts on April 26, 1991.
[7]
The monitors received all of the advances to the
Corporation from this date and retained control throughout the assessed period,
to the exclusion of the Applicant, DiLorenzo and Weinstein. From July 1992, no
cheques issued by the Corporation were signed by the Applicant, nor did he have
the authority to do so. Both the Applicant and DiLorenzo transferred their
ownership of the Corporation to Zurich.
[8]
The Corporation passed a Banking Resolution in June, 1992
approving Zurich’s appointment of a monitor to be the only signing authority
with respect to all banking. During the relevant periods, Weinstein continued
to do the accounting for the project and made the requests to Ajax Municipal
Housing Corporation for the progress advances or draws. Weinstein calculated
the amount of draws including the requisite amount for GST. The draw proceeds
would go into the bank account over which Zurich, through the monitor, had
complete control. The last deposit from the project to the Corporation’s
account was in September, 1993.
[9]
In 1993 and 1994, the Corporation failed to properly remit
net tax within the meaning of the ETA. The Applicant alleges the monitors
failed to pay the remittances, although they were on occasion asked to do so by
Weinstein.
[10]
The Applicant and DiLorenzo had abandoned the Corporation’s
construction contract with Ajax Municipal Housing Corporation in December,
1993, before its completion. Both the Applicant and DiLorenzo were no longer
involved with the project after December 1993. The first indication DiLorenzo
had that GST had not been paid was in 1996.
[11]
On or about June 25, 1997, a Notice of Assessment was
issued to the Corporation for the following periods and amounts:
1. The
period April 1, 1993 to June 30, 1993 for the amount of $30,333.43 of which
$19,498.37 was principal and the balance penalty and interest.
2.
The period January 1, 1994 to March 31, 1994 for the amount
of $36,832.39 of which $22,745.45 was principal and the balance penalty and
interest.
[12]
The total amount of the Notice of Assessment was
$67,165.82.
[13]
DiLorenzo challenged the Notice of Assessment to the Tax
Court of Canada [TCC]. On May 16, 2001, the TCC released its decision in DiLorenzo
v Her Majesty the Queen, [2001] GSTC 67, 2001 GTC 457 [DiLorenzo]. The TCC
found that DiLorenzo was not liable for the amount claimed in the Notice of
Assessment. The TCC held that DiLorenzo had exercised sufficient due diligence
so as to be able to apply the exemption in subsection 323(3) of the ETA.
During the trial, the Applicant gave evidence as a witness.
[14]
The Applicant believed the TCC decision was determinative
of his assessment since he and Mr. DiLorenzo were in the same position as
directions of the corporation. Since the Applicant had not independently appealed
his Notice of Assessment, he was assessed personally as a director of the
corporation for the failure to remit GST notwithstanding the TCC decision. The
Applicant became aware of the outstanding balance still claimed by the CRA when
he called the CRA to follow up on a hold that it had put on his Income Tax
refund. The Applicant requested that the Minister waive the interest and
penalties that had been assessed pursuant to the assessment. The CRA denied his
request.
[15]
The Applicant requested an administrative review of the
CRA’s decision not to grant him relief. The CRA considered the Applicant’s
request and by letter dated April 28, 2008 advised the Applicant that CRA was
granting him partial interest relief but otherwise denied the Applicant’s
request that the Minister waive the interest and penalties owing in respect of
the assessment.
[16]
It is this decision which is the subject of the current
judicial review application.
Decision Under Review
[17]
The decision under review consists of the letter dated
April 28, 2008 from Hank Koudsi, the Assistant Director of Revenue Collections.
The Taxpayer Relief Report [TPR] forms a part of the reasons for decision. The
TPR is an initial review of an application for Taxpayer Relief and was
conducted by a designated officer, Elizabeth Costa.
[18]
The TPR begins with a synopsis of the request made by
counsel for the Applicant. The TPR notes the request reiterates three of the
extenuating circumstances addressed in the first level review and notes the
circumstances in the submissions as:
A. Ignorance of the Law –
Lack of awareness.
B. Obligation To Inform –
CRA Counsel did not advise during Tax
Court
proceedings
C. Debt
Would Not Exist – [Applicant] would have been included in the Tax
Court
Appeal
[19]
The TPR indicates that the outstanding balance pertained to
quarterly returns filed for 93-06-30 and 94-03-31. The TPR shows that the company
was incorporated on February 8, 1989 and the charter was surrendered on June
26, 1995. The TPR states that the company suffered large losses when real
estate prices dropped and contracts fell through.
[20]
The debt at issue was certified and the assessments were
raised against the Applicant and Nicola DiLorenzo on June 25, 1997. The TPR
notes that director Nick DiLorenzo appealed the assessment successfully at the
Tax Court of Canada and his assessment was vacated. The TPR states that there
was no reply from the Applicant with regards to the assessment.
[21]
The TPR indicates that while the assessment against DiLorenzo
was vacated by the court, the assessment against the Applicant remained valid.
The TPR notes that the assessment was raised for the full amount of the
unremitted GST plus penalties and interest at the time of the assessment and
that therefore the full amount of the current liability should be collectible
from the Applicant.
[22]
The TPR then addressed the three circumstances raised in
the Applicant’s submissions:
Ignorance of the Law – Lack of awareness
[23]
The TPR states that ignorance of the law does not
constitute an extenuating circumstance that would warrant relief. The TPR notes
the onus remained with the directors of a company to ensure trust funds are
filed and remitted regardless of appointing a third party to handle these
duties.
[24]
The TPR also indicates that the Applicant confirmed that he
acknowledged receipt of the notice of assessment and states that a copy of the
Acknowledgment of Receipt dated July 9, 1997 with the Applicant’s signature was
included in the docket.
[25]
The TPR shows that the Applicant argues that he was unaware
that he had to respond to the assessment and thought hat the matter was being
dealt with through his co-director. The TPR states that as the Applicant was
present at the hearing of the co-director and had an opportunity to review the
pleadings or hear the submissions and this would have disclosed only the
co-director’s name as an appellant. The TPR also states that the Applicant
would have had the opportunity to ask the co-director’s counsel who could have
dispelled any misunderstanding that his assessment was also under appeal.
Obligation to Inform – CRA Counsel did not advise during Tax Court
proceedings
[26]
The TPR indicates that the Applicant’s current counsel was
not an authorized representative of the Applicant at the time the co-director
was appealing the assessment. The TPR indicates that confidentiality protocol
dictated the appropriate actions taken by the Agency.
[27]
The TPR states that the onus was on the Applicant to inform
himself of the steps to be taken to object or appeal the assessment and there
was no evidence submitted that disclosed the Applicant was prevented from
taking those steps or that CRA provided misguided information.
Debt Would not Exist – [Applicant] would have been included
in the Tax Court Appeal
[28]
The TPR indicates that while the Agency had considered the
judgment in favour of the co-director, the fact remained that the Applicant was
not a co-appellant. The TPR states that under the legislation, directors of a
corporation are jointly and severally liable along with the corporation to
remit trust funds. The TPR states that as a director, it would be incumbent on
the Applicant to be aware of the responsibilities pertaining to trust funds and
also be aware of the consequences for non-compliance. The TPR asserts that the
Agency acted accordingly under legislation and allowed the Applicant the
opportunity to appeal his assessment.
[29]
The TPR concluded that the TPR guidelines dictate that the
extenuating circumstances must be “beyond the taxpayers control”. The TPR found
that the submissions failed to demonstrate how the circumstances described were
factors beyond the Applicant’s control.
[30]
The TPR did recommend granting partial relief due to a
delay by collections in contacting the Applicant. The TPR found that relief was
warranted from July 9, 1997 to August 23, 2005. The TPR noted that the
Applicant received and signed for the assessment, but CRA did not collect on
it. The TPR stated that the Applicant became aware the outstanding balance was
still collectable in August of 2005 when he called about a refund hold on his
T1 account.
[31]
The TPR also found that due to the delay in review of the
administrative request, accrual of interest was recommended from December 5,
2006 to the date of the decision.
The Decision Letter
[32]
The Decision Letter dated April 28, 2008 from Mr. Hank
Koudsi stated that the Applicant had failed to demonstrate that he was
prevented from complying with CRA’s requirements due to factors beyond his
control. The letter indicates that it was the responsibility of the Applicant
to object to or appeal the assessment.
[33]
The Decision Letter acknowledges the delay on the part of
the CRA in informing the Applicant of the accruing balance on the account, and
as such, the accrual of interest charged on the assessment from July 9, 1997 to
August 23, 2005 would be cancelled.
[34]
The Letter also acknowledges the delay on the part of the
CRA to complete the administrative review, and therefore, the accrual of
interest charged on the assessment from December 5, 2006 to the date of the
letter (April, 28, 2008) would also be cancelled.
[35]
The Decision Letter concludes by providing the review
process for challenging the decision to the Federal Court.
Relevant Legislation
[36]
The Excise Tax Act, RSC 1985, c E-15 provides:
280. (1) Subject to this section and section 281, if a
person fails to remit or pay an amount to the Receiver General when required
under this Part, the person shall pay interest at the prescribed rate on the
amount, computed for the period beginning on the first day following the day
on or before which the amount was required to be remitted or paid and ending
on the day the amount is remitted or paid.
…
281.1 (1) The Minister may, on or before the day
that is 10 calendar years after the end of a reporting period of a person, or
on application by the person on or before that day, waive or cancel
interest payable by the person under section 280 on an amount that is
required to be remitted or paid by the person under this Part in respect of
the reporting period.
(2) The Minister may, on or before the day that is
10 calendar years after the end of a reporting period of a person, or on
application by the person on or before that day, waive or cancel all or
any portion of any
(a) penalty that became payable by the person under
section 280 before April 1, 2007, in respect of the reporting period; and
(b) penalty payable by the person under section 280.1,
280.11 or 284.01 in respect of a return for the reporting period.
…
323. (1) If a corporation fails to remit an amount of net
tax as required under subsection 228(2) or (2.3) or to pay an amount as
required under section 230.1 that was paid to, or was applied to the
liability of, the corporation as a net tax refund, the directors of the
corporation at the time the corporation was required to remit or pay, as the
case may be, the amount are jointly and severally, or solidarily, liable,
together with the corporation, to pay the amount and any interest on, or
penalties relating to, the amount.
(3) A director of a corporation is not liable for a
failure under subsection (1) where the director exercised the degree of care,
diligence and skill to prevent the failure that a reasonably prudent person
would have exercised in comparable circumstances.
[emphasis added]
|
280. (1) Sous réserve
du présent article et de l’article 281, la personne qui ne verse pas ou ne
paie pas un montant au receveur général dans le délai prévu par la présente
partie est tenue de payer des intérêts sur ce montant, calculés au taux
réglementaire pour la période commençant le lendemain de l’expiration du
délai et se terminant le jour du versement ou du paiement.
…
281.1 (1) Le ministre peut, au plus tard le jour qui suit
de dix années civiles la fin d’une période de déclaration d’une personne ou
sur demande de la personne présentée au plus tard ce jour-là, annuler les
intérêts payables par la personne en application de l’article 280 sur tout
montant qu’elle est tenue de verser ou de payer en vertu de la présente
partie relativement à la période de déclaration, ou y renoncer.
(2) Le ministre peut, au plus tard le jour qui suit de
dix années civiles la fin d’une période de déclaration d’une personne ou sur
demande de la personne présentée au plus tard ce jour-là, annuler tout ou
partie des pénalités ci-après, ou y renoncer :
a) toute pénalité devenue payable par la personne en
application de l’article 280 avant le 1er avril 2007 relativement à la
période de déclaration;
b) toute pénalité payable par la personne en application
des articles 280.1, 280.11 ou 284.01 relativement à une déclaration pour la
période de déclaration.
…
323. (1) Les administrateurs d’une personne morale au
moment où elle était tenue de verser, comme l’exigent les paragraphes 228(2)
ou (2.3), un montant de taxe nette ou, comme l’exige l’article 230.1, un
montant au titre d’un remboursement de taxe nette qui lui a été payé ou qui a
été déduit d’une somme dont elle est redevable, sont, en cas de défaut par la
personne morale, solidairement tenus, avec cette dernière, de payer le
montant ainsi que les intérêts et pénalités afférents.
(3) L’administrateur n’encourt pas de responsabilité s’il
a agi avec autant de soin, de diligence et de compétence pour prévenir le
manquement visé au paragraphe (1) que ne l’aurait fait une personne
raisonnablement prudente dans les mêmes circonstances.
|
Issues
[37]
The determinative issue arising in this application for
judicial review is: Did the decision-maker error in finding that the Applicant
had failed to demonstrate that he was prevented from complying with CRA’s
requirements due to factors beyond his control?
Standard of Review
[38]
The Supreme Court of Canada held in Dunsmuir v New
Brunswick, 2008 SCC 9, [2008] 1 S.C.R. 190 [Dunsmuir] that there are
only two standards of review: correctness for questions of law and reasonableness
involving questions of mixed fact and law and fact. Dunsmuir at paras 50
and 53.The Supreme Court also held that where the standard of review has been
previously determined, a standard of review analysis need not be repeated. Dunsmuir
at para 62
[39]
In Litmar Ltd. v Minister of National Revenue, 2006
FC 635 [Litmar] Gauthier J. discussed the standard of review for
decisions made under sections 281.1(1) and (2) of the ETA and found that the
appropriate standard of review is that of reasonableness. Litmar at
paras 18-21
Arguments of the Parties
[40]
The Applicant submits the decision-maker erred in finding
that the Applicant failed to demonstrate that he was prevented from complying
with the CRA’s requirements due to factors beyond his control.
[41]
The Applicant argues that the decision-maker failed to
apply the proper test when exercising the discretion provided under the ETA
to waive penalties and interest, which is afforded under sections 280(1),
281.1(1) and (2). The Applicant submits the decision-maker failed to exercise
his statutory discretion in good faith and/or in accordance with the principles
of natural justice, and relied upon considerations irrelevant or extraneous to
the statutory purpose. The Applicant submits that the decision-maker, by not
taking into consideration the forgoing principles, rendered a decision that was
unreasonable.
[42]
The Respondent submits the Applicant has not identified any
actual issues related to a denial of natural justice or procedural fairness.
The Respondent submits that the Applicant’s position is similar to that of the
applicant in Litmar which held that a review of decision made under
sections 281.1(1) and (2) is to be made on a reasonableness standard.
[43]
The Respondent submits that the Applicant alleged that he
had no notice of his assessment liability and that the decision in DiLorenzo
showed that he had acted with due diligence. The Respondent argues that the
CRA’s decision not to accept the Applicant’s allegation that he had had no
notice of his assessment liability was reasonable as it had a copy of his
signed Acknowledgement of Receipt in its possession. The Respondent also argues
that there was no evidence before the decision-maker as to what would have
prevented the Applicant from objecting to the assessment.
[44]
The Respondent submits the CRA’s decision not to waive
penalties and further interest on the basis of the DiLorenzo decision
was reasonable as the Applicant was not a party to that litigation and the
decision was highly fact specific. The Respondent submits the decision was
irrelevant to the Applicant’s liability to pay interest and penalties as and
when required by the ETA.
[45]
The Respondent notes that the CRA was bound by the deeming
provisions found in subsections 299(3) and (4), as well as 323(4) of the ETA.
These provisions deem an assessment to be valid unless it is vacated by the
Minister or the TCC on appeals or objections. The Respondent submits that, in
light of the deemed validity of the assessment, the CRA acted reasonably in not
accepting the Applicant’s request for further interest and penalty relief on
the basis of an alleged underlying defect in the assessment. The Respondent
submits that if that were the case, the Applicant should have objected to the
assessment.
[46]
The Respondent submits that although the Applicant has not
put this at issue, the CRA also acted reasonably in concluding that it had
failed to notify the Applicant of his accruing outstanding balance. The
Respondent notes the decision-maker granted the Applicant full relief in
respect of the interest that had accrued from the date on which he acknowledged
receipt of the notice of assessment to the date he was notified of his
outstanding balance. The Respondent submits the CRA also acted reasonably in
granting the Applicant additional interest relief in light of its delay in
dealing with his request for taxpayer relief.
[47]
Finally, the Respondent submits that even if the standard
of review in this matter is correctness, the April 28, 2008 decision should
still withstand judicial scrutiny. The Respondent submits the CRA has no
discretion as to whether to charge interest on outstanding balances. The
Respondent submits that pursuant to s. 280 of the ETA a taxpayer must
pay the interest at the prescribed rate on any amount they have failed to remit
as and when due. The Respondent notes that the assessment is deemed to be valid
and the Applicant cannot dispute that he should have remitted his outstanding
balance. In light of this, the Respondent submits, the CRA was correct in
refusing to waive the interest and penalties levied on a valid assessment just
because a taxpayer alleges that if they had objected they may have been successful
on a due diligence defence.
Analysis
[48]
First, it must be kept in mind that this Court is being
asked to determine whether the decision dated April 28, 2008 was reasonable.
This Court should not be determining whether the underlying assessment at the
heart of this matter is valid or not. As Gauthier J. stated in Litmar,
this Court has no jurisdiction to judicially review decisions that can be
appealed to the TCC, whether or not they have in fact been appealed. Litmar at
para 17
[49]
The Applicant appears to contest the validity of the
assessment on the basis that he, like DiLorenzo, was duly diligent. This is a
defence pursuant to s. 323 of the ETA. However, it is not up to this Court to
determine whether the Applicant exercised due diligence, as his co-director was
found to have done. Instead, what this Court is tasked with is determining
whether the decision maker failed to observe a principle of natural justice or
procedural fairness or whether the decision-maker based its decision on an
erroneous finding of fact that it made in a perverse or capricious manner or
without regard for the material before it.
[50]
Second, the evidentiary record before this Court is rather
sparse. For example, no evidence has been submitted to provide the guidelines
or basis upon which the decision-maker was to rely. At page 27 of the
Respondent’s Record, the Respondent states:
[50]
From March 14, 1994 until January,
2009 the CRA’s guidelines in respect of how it would exercise [the discretion
to waive or cancel interest or penalties payable pursuant to s. 280 of the ETA]
on behalf of the Minister were set out in GST Memorandum 500-3-2-1.
This GST
Memorandum 500-3-2-1 has not been provided. As such, the decision itself will
guide the analysis of whether the decision-maker considered the appropriate
submissions made by the Applicant.
Did the
decision-maker error in finding that the Applicant had failed to demonstrate
that he was prevented from complying with CRA’s requirements due to factors
beyond his control?
[51]
As a preliminary matter, I am in agreement with the
Respondent that the appropriate standard of review is that of reasonableness. I
base this on the standard of review analysis conducted by Gauthier J. in Litmar.
[52]
In the TPR Reasons, the officer concluded the analysis by
stating:
The TPR guidelines dictate that
the extenuating circumstances must be “beyond the taxpayers control”. The
administrative submission has failed to demonstrate how the circumstances
described were factors beyond the director’s control.
[53]
The decision-maker adopted these findings in his Decision
Letter:
After considering all the
circumstances of your case, and the information provided, the administrative
submission has failed to demonstrate that Mr. O’Hara was prevented from
complying with the Canada Revenue Agency’s requirements due to factors beyond
his control. It was the responsibility of Mr. O’Hara to object or appeal the assessment.
[54]
Essentially, the CRA found that the Applicant had not
demonstrated the existence of extenuating circumstances beyond the Applicant’s
control which prevented him from complying with CRA requirements. The Applicant
made submissions which the TPR considered under the following three headings:
ignorance of the law; obligation to inform; and debt would not exist. In order
to determine whether the TPR and the decision-maker, which relied on the TPR
reasons, made a reasonable decision, I turn to the Applicant’s submissions on
the three TPR characterizations and the findings by the CRA.
Ignorance of the Law – Lack of Awareness
[55]
The TPR noted that ignorance of the law does not constitute
an extenuating circumstance that would warrant relief and that the onus remains
with the directors of a corporation to ensure trust funds are filed and
remitted regardless of appointing a third party to handle these duties.
[56]
While I agree with the TPR’s general comments on this
matter, this does not take into account the submissions of the Applicant. The
Applicant submitted the DiLorenzo decision as part of its submissions.
In that decision, McArthur J.T.C.C. stated the following:
All draws from the Ajax Project went into a bank account over which the Appellant had no control – only the
monitors had signing authority. The advances were inclusive of
GST yet the GST was not paid. The monitors paid the amounts necessary to keep
the construction producing advances and paid its own fees. Now the Appellant is
being called upon to pay Revenue Canada the GST which was collected but not
remitted. I believe a strong argument can be made to the effect that the GST
component over which the monitors had control is trust money that cannot be
paid to anyone other than Revenue Canada. Be that as it may, the monitor had no
legal obligation to remit the GST collected. A monitor, Mr. Doughtery, stated
no one told them to remit the GST to Revenue Canada, yet the agreement under
which they were working stipulated that the monitor was to pay taxes. I agree
that the monitor is not the subject of the assessment and I should not be
side-tracked into blaming the monitor. The question is whether the Appellant
acted reasonably to assure that GST collected was remitted as envisaged in
subsection 323(3). There is no evidence that the Appellant was made aware that
there was a GST problem. What proactive steps were undertaken by the Appellant
to take him out of the totally passive mode? The Appellant’s answer was “I’m
not a paper man, I relied absolutely on my chartered accountant, Mr.
Weinstein”.
Is this due diligence? I believe
it is. What more could have been done? He had hired a highly experience
[sic] chartered accountant and he had no control over the bank account into
which the draws were deposited. In December 1993 when the building was
substantially completed, the Appellant and O’Hara notified the Ajax
Municipal Housing Corporation that they could no longer honour their contract. There
is an assessment for the period from January 1994 to March 1994 when the
Appellant no longer was involved in the completion of the Project.
[emphasis added]
[57]
While the Applicant was not a party to the DiLorenzo
case, the Applicant was a director of the Corporation in substantially the same
situation as the Appellant DiLorenzo. Some of the facts of the case are
specific to DiLorenzo. For example, in considering whether DiLorenzo had
exercised due diligence, the TCC considered DiLorenzo’s education and specific
role in the Corporation.
[58]
However, many of the facts found by the TCC apply equally
to both DiLorenzo and the Applicant. The facts surrounding Zurich’s control of
the Corporation’s bank accounts and signing authority would exist just as much
for the Applicant as they did for DiLorenzo. The TCC’s finding that Weinstein
had no control over the bank account into which the draws were deposited
applies equally to the Applicant as it did for DiLorenzo.
[59]
The TCC found that the monitors in control of the
Corporation’s accounts did not remit the GST when they ought to have. The TCC
also found that this inability to remit the GST was beyond the powers of DiLorenzo.
The Applicant submitted that he was in the same situation and that he was
unable to comply with CRA requirements as a result.
[60]
In my view, the CRA failed to consider these particular
facts. The only portion of the TPR Reasons which specifically address the DiLorenzo
decision submitted by the Applicant is found in the “Debt would not exist”
category:
While the Agency has considered
the Judgement, the fact remains the director was not a co-appellant. Under
legislation, the directors of a corporation are jointly and severally liable
along with the corporation to remit trust funds. As a director, it would be
incumbent upon the director to be aware of the responsibilities pertaining to
trust funds and also be aware of the consequences for non-compliance.
[61]
The Applicant did not submit that he was unaware of the
requirement to pay GST; the Applicant submitted that the DiLorenzo
decision demonstrated that circumstances beyond his control lead to the taxes
not being remitted and ultimately to the assessment made. The CRA had the TCC
findings before it when writing the TPR. In my view, the CRA erred by finding
that the Applicant had not demonstrated circumstances beyond the Applicant’s
control which prevented the Applicant from complying with CRA regulations when
it did not address the findings made by McArthur J.T.C.C.
[62]
This failure to consider the factual findings in DiLorenzo
equates to an erroneous finding of fact made without regard for the material
before it. I would grant the application on this matter alone.
Obligation to Inform – CRA Counsel did not advise during
Tax Court Proceedings
[63]
I also conclude the CRA erred in its consideration of the
Applicant’s submission that the CRA ought to have informed the Applicant of the
accrued assessment during the TCC proceedings in the DiLorenzo hearings.
[64]
In its analysis on this issue, the TPR Reasons state the
following:
The current authorized rep was
not an authorized rep when the co-director was appealing the assessment.
Confidentiality protocol dictated the appropriate actions taken by the Agency
and/or its agents. There is no supporting documentation that would substantiate
the current authorized rep. as being on file as an authorized representative
for Mr. O’Hara during the Hearings (Apr 17, 19?, Jun 6/00 and Jan 10/01) and
the Judgement (May 16/01). The onus is on the director to inform himself of the
steps to be taken to object or appeal the assessment and there is no evidence submitted
that discloses that Mr. O’Hara was prevented from taking those steps or that
CRA provided misguided information.
[65]
In my view, such a finding, based on the submissions of the
Applicant and the TPR Reasons, is unreasonable for the following reasons.
[66]
In the TPR reasons, the CRA does not provide why the CRA
counsel could not or would not inform the Applicant of the outstanding
assessment levied against the Applicant. Instead, the TPR Reasons focus on why
the CRA was unable to discuss the matter with the Applicant’s current counsel.
[67]
My understanding of the Applicant’s submissions on this
point was that the counsel for the CRA in the DiLorenzo case ought to have
informed the Applicant that the assessment against the Applicant was not part
and parcel of DiLorenzo’s appeal. I am not questioning whether the counsel for
the CRA was required to do so or not. That is something that the CRA was asked
to determine. However, according to the TPR Reasons, it appears that the CRA
misconstrued what was being asked of it. The question was not that whether
counsel for the CRA ought to have informed DiLorenzo’s counsel, but whether
counsel for the CRA ought to have informed the Applicant himself. An analysis
along these lines would preclude the necessity of the CRA considering the
appropriate confidentiality protocol discussed in the TPR Reasons.
[68]
The CRA failed to address the argument submitted by the
Applicant and conducted an analysis that did not fit with what ought to have
been considered. This is an error and the matter ought to be remitted to be
reconsidered.
[69]
The above reasons are sufficient to determine this matter
and I do not propose to consider the third argument put forth by the Applicant:
that the debt would not exist had the applicant been included in appeal. That
would be a matter for the TCC.
[70]
The Parties are agreed costs of $1,380.00 to be awarded to
the successful side.
Conclusion
[71]
I conclude the CRA erred in determining that the Applicant
had not demonstrated that he was prevented form complying with CRA requirements
due to factors beyond his control.
[72]
I would send the matter back for re-determination by
another decision maker with a direction that the CRA consider the findings in DiLorenzo
in making the re-determination.
JUDGMENT
THIS COURT’S JUDGMENT is that:
1. The decision under review is quashed and the
matter is returned to be re-determined by a different decision maker.
2. The re-determination is to have regard to the
findings in the Tax Court decision in DiLorenzo v Her Majesty the Queen,
[2001] GSTC 67, 2001 GTC 457.
3. Costs are in favour of the Applicant in the amount of
$1,380.00, all inclusive.
“Leonard
S. Mandamin”