Isodo Abdul v Arua District Local Government (Misc Appl No 02-CV-MA-0058-2004) (Misc Appl No 02-CV-MA-0058-2004) [2005] UGHC 44 (1 September 2005)

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Jessica chemeri}{\operator Wor. Jessica chemeri}{\creatim\yr2008\mo7\dy22\hr10\min46} {\revtim\yr2008\mo7\dy22\hr10\min46}{\version2}{\edmins1}{\nofpages12}{\nofwords4001}{\nofchars22807}{\nofcharsws26755}{\vern24689}}\paperw11907\paperh16840\margl1776\margr1626\margt1521\margb360 \widowctrl\ftnbj\aenddoc\noxlattoyen\expshrtn\noultrlspc\dntblnsbdb\nospaceforul\hyphcaps0\formshade\horzdoc\dgmargin\dghspace180\dgvspace180\dghorigin1776\dgvorigin1521\dghshow1\dgvshow1 \jexpand\viewkind1\viewscale100\pgbrdrhead\pgbrdrfoot\splytwnine\ftnlytwnine\htmautsp\nolnhtadjtbl\useltbaln\alntblind\lytcalctblwd\lyttblrtgr\lnbrkrule\nobrkwrptbl\snaptogridincell\allowfieldendsel\wrppunct \asianbrkrule\rsidroot9075614\newtblstyruls\nogrowautofit \fet0{\*\ftnsep \pard\plain \ql \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid6510161 \chftnsep \par }}{\*\ftnsepc \pard\plain \ql \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid6510161 \chftnsepc \par }}{\*\aftnsep \pard\plain \ql \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid6510161 \chftnsep \par }}{\*\aftnsepc \pard\plain \ql \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid6510161 \chftnsepc \par }}\sectd \linex0\sectdefaultcl\sftnbj {\footer \pard\plain \s16\ql \li0\ri0\widctlpar\tqc\tx4320\tqr\tx8640\pvpara\phmrg\posxr\posy0\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5051465 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\field{\*\fldinst {\cs17\insrsid13663839 PAGE }}{\fldrslt {\cs17\lang1024\langfe1024\noproof\insrsid6510161 1}}}{\cs17\insrsid13663839 \par }\pard \s16\ql \li0\ri360\widctlpar\tqc\tx4320\tqr\tx8640\aspalpha\aspnum\faauto\adjustright\rin360\lin0\itap0\pararsid13663839 {\insrsid13663839 \par }}{\*\pnseclvl1\pnucrm\pnstart1\pnindent720\pnhang {\pntxta .}}{\*\pnseclvl2\pnucltr\pnstart1\pnindent720\pnhang {\pntxta .}}{\*\pnseclvl3\pndec\pnstart1\pnindent720\pnhang {\pntxta .}}{\*\pnseclvl4\pnlcltr\pnstart1\pnindent720\pnhang {\pntxta )}} {\*\pnseclvl5\pndec\pnstart1\pnindent720\pnhang {\pntxtb (}{\pntxta )}}{\*\pnseclvl6\pnlcltr\pnstart1\pnindent720\pnhang {\pntxtb (}{\pntxta )}}{\*\pnseclvl7\pnlcrm\pnstart1\pnindent720\pnhang {\pntxtb (}{\pntxta )}}{\*\pnseclvl8 \pnlcltr\pnstart1\pnindent720\pnhang {\pntxtb (}{\pntxta )}}{\*\pnseclvl9\pnlcrm\pnstart1\pnindent720\pnhang {\pntxtb (}{\pntxta )}}\pard\plain \s15\qc \li14\ri0\nowidctlpar\faauto\rin0\lin14\itap0\pararsid9075614 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\b\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 THE REPUBLIC OF UGANDA \par \par IN THE HIGH COURT OF UGANDA HOLDEN AT GULU \par \par MISC APPL NO. 02-CV-MA-0058-2004 \par }\pard \s15\ql \li14\ri0\nowidctlpar\faauto\rin0\lin14\itap0\pararsid9075614 {\b\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 \par ISODO ABDUL ::::::::::::::::::::::::::::::::::::::::::: APPLICANT \par \par =VERSUS= \par \par ARUA DISTRICT LOCAL ) \par \par GOVERNMENT ) :::::::::::::::::::::::::::::::::RESPONDENT}{\b\cf1\lang2057\langfe1033\langnp2057\insrsid9075614 \par \par BEFORE: HON JUSTICE AUGUSTUS KANIA \par \par }\pard \s15\qc \li14\ri0\nowidctlpar\faauto\rin0\lin14\itap0\pararsid9075614 {\b\cf1\lang2057\langfe1033\langnp2057\insrsid9075614 RULING \par }\pard \s15\qj \li14\ri0\sl360\slmult1\nowidctlpar\faauto\rin0\lin14\itap0\pararsid9075614 {\cf1\lang2057\langfe1033\langnp2057\insrsid9075614 The applicant, who is the Chief Administrative Officer of Arua }{ \cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 District, brought this app lication purportedly under the provisions of section the Civil Procedure (Amendment)(Judicial Review) Rules 2003. The relevant Law under which this application should have been brought ought to have been section 36 of the Judicature Act and Rule 6(2) (b) o f Order 42 A of the Civil Procedure (Amendment) (Judicial Review) Rules S .1. 75 of 2003. Though the enabling law for this application has not been cited I shall proceed to consider the application as if it had been brought under the relevant enabling law in the spirit of administering substantive justice in the spirit of Article 126(2)(e) of the Constitution of Uganda. }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614 \par The applicant seeks for the following:- \par {\listtext\pard\plain\s15 \cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 \hich\af0\dbch\af0\loch\f0 1.\tab}}\pard \s15\qj \fi-360\li734\ri0\sl360\slmult1\nowidctlpar\jclisttab\tx734\faauto\ls1\rin0\lin734\itap0\pararsid9075614 { \cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 That the proceedings of the Respondent's Council of the 23}{\cf1\lang2057\langfe1033\super\langnp2057\insrsid9075614\charrsid14576819 rd}{ \cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 October 2003 and the subsequent interdiction of the applicant be quashed }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614 \par {\listtext\pard\plain\s15 \cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 \hich\af0\dbch\af0\loch\f0 2.\tab}}{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 That the interdiction of the applicant be declared null and void for illegality and breach of the principles of Natural Justice. }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614 \par {\listtext\pard\plain\s15 \cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 \hich\af0\dbch\af0\loch\f0 3.\tab}}{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 The applicant be reinstated as the Chief Administr ative Officer of Arua District.}{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614 \par {\listtext\pard\plain\s15 \cf1\lang2057\langfe1033\langnp2057\insrsid9075614 \hich\af0\dbch\af0\loch\f0 4.\tab}That the applicant be granted general and exemplary damages \par {\listtext\pard\plain\s15 \cf1\lang2057\langfe1033\langnp2057\insrsid9075614 \hich\af0\dbch\af0\loch\f0 5.\tab}That the costs of this application be provided for. \par }\pard \s15\qj \li14\ri0\sl360\slmult1\nowidctlpar\faauto\rin0\lin14\itap0\pararsid9075614 {\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 The application which is supported by the affidavit of the applicant dated 31}{ \cf1\lang2057\langfe1033\super\langnp2057\insrsid9075614\charrsid14576819 5t}{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 May 2004 and the applicant's supplementary affidavit dated 25}{ \cf1\lang2057\langfe1033\super\langnp2057\insrsid9075614\charrsid14576819 th}{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 February 2005 is founded on the following grounds. }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614

\par {\listtext\pard\plain\s15 \cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 \hich\af0\dbch\af0\loch\f0 c)\tab}}\pard \s15\qj \fi-360\li1454\ri0\sl360\slmult1\nowidctlpar \jclisttab\tx1454\faauto\ls1\ilvl1\rin0\lin1454\itap0\pararsid9075614 {\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 That the interdiction of the applicant was done without following the legally set procedures \par {\listtext\pard\plain\s15 \cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 \hich\af0\dbch\af0\loch\f0 d)\tab}}\pard \s15\qj \fi-360\li1454\ri4\sb508\sl360\slmult1\nowidctlpar \tx701\tx1382\jclisttab\tx1454\faauto\ls1\ilvl1\rin4\lin1454\itap0\pararsid9075614 {\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 That the said interdiction was unlawful and was contrary to the principles of natural justice }{ \cf1\lang2057\langfe1033\langnp2057\insrsid9075614 \par {\listtext\pard\plain\s15 \cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 \hich\af0\dbch\af0\loch\f0 e)\tab}}{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 That the interdiction amounts to victimization of the applicant and should be called and quashed. \par {\listtext\pard\plain\s15 \cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 \hich\af0\dbch\af0\loch\f0 f)\tab}}\pard \s15\qj \fi-360\li1454\ri4\sb508\sl360\slmult1\nowidctlpar \tx696\tx1378\jclisttab\tx1454\faauto\ls1\ilvl1\rin4\lin1454\itap0\pararsid9075614 {\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 The applicant has been put to shame and disrepute and has suffered much inconvenience. }{ \cf1\lang2057\langfe1033\langnp2057\insrsid9075614 \par }\pard \s15\qj \li0\ri4\sb508\sl360\slmult1\nowidctlpar\tx696\tx1378\faauto\rin4\lin0\itap0\pararsid9075614 {\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 The respondent filed the affidavi t of Constantine Imbatia in reply in which he contended the application is bad in law and barred by law, premature, frivolous and vexatious and should therefore be dismissed. }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614 \par T}{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 he brief back ground of this application is that in December 2002 the Council o f the Respondent appointed a select committee to investigate alleged bad and deteriorating relations between councilors and technocrats and between technocrats themselves in the District to save it from disintegrating. The said Committee came up with its f indings including allegations of abuse of office and incompetence against the applicant. The speaker of the Respondents council brought the contents of these allegations to the notice of the applicant and the applicant defended himself before the council meeting of the 29}{\cf1\lang2057\langfe1033\super\langnp2057\insrsid9075614\charrsid14576819 th}{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 and 30}{\cf1\lang2057\langfe1033\super\langnp2057\insrsid9075614\charrsid14576819 th}{ \cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 April 2003 and the council purportedly forgave the applicant on condition that he did not repeat the alleged mistakes. On the 23}{ \cf1\lang2057\langfe1033\super\langnp2057\insrsid9075614\charrsid14576819 rd}{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 October 2003 at a meeting in which the applicant was not in attendance and following communicatio n from the chair to the effect that the officers implicated in the select committee report had not reformed, the council resolved to refer the select committee's report to the chairman District Service Commission. On receipt of the said select committee's report the chairman of the District Service Commission interdicted the applicant on the 19}{\cf1\lang2057\langfe1033\super\langnp2057\insrsid9075614\charrsid14576819 th}{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 day of February 2004 hence this application. }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614 \par }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 Mr. Donge, learned counsel for the applicant submitted that the Respondent's council resolved to refer the Select Com mittee's report to the chairman of the District Service Commission contrary to the principles of natural justice - audi alterem - in that the applicant was not given an opportunity of defending himself at the proceedings of the 23}{ \cf1\lang2057\langfe1033\super\langnp2057\insrsid9075614\charrsid14576819 rd}{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 October 2003. Counsel contended that on the authority of }{ \b\ul\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 Marko Matovu}{\ul\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 }{\b\ul\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 & ors Vs Mohamed Sseviri & Anor Civil Appeal No. 7/78}{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 and on the strength of }{\b\ul\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 Article 21 of the Constitution of Uganda}{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 the decision of the Respondent's council to refer the Select Committee's report to the Chai rman District Service Commission without hearing the applicant was null and void. He also submitted that the same decision was also null and void because contrary to Section 55(4) of the Local Government's Act the Respondent's council did not refer the Se l ect Committee's report together with a request for the type of action to take, Mr. Donge also contended that the resolution to refer the Select Committee's report was null and void for the additional reason that it was not supported by 2/3 of the council a s provided for under Section 68(1) of the Local Government's Act. He argued that the assertion that the resolution to refer the report was unanimous is not expressive of the 2/3 requirement. Counsel also made reference to the supplementary affidavit sworn

by the applicant which cited the L. C. V Chairman disowning the resolution as something doctored. Mr. Donge prayed that the applicant be awarded shs 80,000,000/= as general damages for mental pain and anguish and for defamation and shs 500,000/= in exemplar y damages for illegal wanton and unconstitutional acts of the respondent. He also prayed that the application be granted with costs to the applicant. }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614 \par }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 Mr. Alaka, learned counsel for the Respondent, submitted that the Respondent's council had no authority to absolve or discipline the applicant and therefore there was nothing wrong in the council not telling the District Service Commission what to do when it forwarded to it the Select Committee's report. He argued that whereas the Local Governments Act lays d o wn the procedure for the removal of a Chief Administrative Officer, there is no procedure as to how disciplinary control over a Chief Administrative Officer is to be exercised. Mr Alaka argued that because the District Service Commission exercises discipl inary control according to regulations governing its meetings the presence of the applicant was not required when he was interdicted. He contended that because the exercise of interdiction did not require fair hearing as was held in }{ \b\ul\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 Misc. Application No 851 of 2004 Cheborion Barishaki Vs the Attorney General}{\b\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 ,}{ \cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 the prayer to quash the interdiction should be rejected. Counsel for the Respondent submitted that it is superfluous to ask for the reinstatement of the applicant as the CAO since he has not been remove d from office as indeed he himself describes himself in his motion as the Chief Administrative Officer of the Respondent District. He argued that the claim of general damages in defamation is not maintainable because defamation should form a separate caus e of action. Counsel submitted that the document to the supplementary affidavit be rejected because it offends section 60 of the Evidence Act. He prayed that the application be dismissed with costs. }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614

\par }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 The prerogative orders of Certiorari and prohibition are the means by which the High Court exercises its Supervisory jurisdiction over proceedings and decision of inferior courts, Tribunals and other bodies or persons who carry out quasi judicial function s or who are charged with the performance of public acts and duties. They serve as a control of Administrative action and decisions of Public bodies which affect the rights of the ordinary citizens. These prerogative orders are not intended to hinder the s mooth running of Administrative machinery.}{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614 \par The scope of the order of certiorari is two fold;-}{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 \par {\listtext\pard\plain\s15 \cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 \hich\af0\dbch\af0\loch\f0 a)\tab}}\pard \s15\qj \fi-360\li1080\ri0\sl360\slmult1\nowidctlpar\jclisttab\tx1080\faauto\ls2\rin0\lin1080\itap0\pararsid9075614 { \cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 To quash decisions which are ultra vires and void and therefore nullities in law. }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614 \par {\listtext\pard\plain\s15 \cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 \hich\af0\dbch\af0\loch\f0 b)\tab}}{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 To quash decisions which are intra Vi res but have an apparent error on the face of the record and have been irregularly arrived at and are therefore voidable}{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614 .}{\ul\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid13663839 \par }\pard \s15\qj \li0\ri0\sl360\slmult1\nowidctlpar\faauto\rin0\lin0\itap0\pararsid9075614 {\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 The right and the reasons for which an individual may apply to the High Court for the prerogative order of Certiorari are contained in }{\b\ul\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 Article 42 of the Constitution of Uganda which provides as follows;-}{\b\ul\cf1\lang2057\langfe1033\langnp2057\insrsid9075614 \par }\pard \s15\qj \li340\ri0\sl360\slmult1\nowidctlpar\faauto\rin0\lin340\itap0\pararsid9075614 {\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 \lquote 42 Any person appearing before any administrative official or body has a right to be treated justly and fairly and shall have a right to apply to a court of law in respect of any administrative decisions taken against him/her\rquote }{ \cf1\lang2057\langfe1033\langnp2057\insrsid9075614 . \par }\pard \s15\qj \li0\ri0\sl360\slmult1\nowidctlpar\faauto\rin0\lin0\itap0\pararsid9075614 {\cf1\lang2057\langfe1033\langnp2057\insrsid9075614 \par }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 That the fair treatment envisaged in the above Article entails the right to be heard is clearly stated in the speech of }{ \b\ul\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 Lord Denning M. R in}{\ul\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 }{\b\ul\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 Breen vs. Amalgamated Engineering Union[1971] I All ER at}{\ul\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 }{\b\ul\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 page 1153 cit ed with approval in Marko Matovu and Ors vs. Mohamed Sseviri & Anr CACA 7/1978}{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 at page 9;- \par }\pard \s15\qj \li714\ri19\sb518\sl360\slmult1\nowidctlpar\faauto\rin19\lin714\itap0\pararsid9075614 {\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 'It is now well settled that a statutory body which is entrusted by statute with discretion must act fairly. It does not matter whether its functions are described as Judicial or quasi judicial on the one hand or as administrative on the other hand or what you will still it must act fairly. It must in a proper case give a chance to be heard. ' \par }\pard \s15\qj \li0\ri3\sb556\sl360\slmult1\nowidctlpar\faauto\rin3\lin0\itap0\pararsid9075614 {\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 In the instant case the Select Committee of the Respondent's council comp iled a report accusing the applicant of abuse of office, corruption, incompetence's and misconduct. The said Select Committee also recommended to the Respondent's council that it takes appropriate action against the applicant under section 69(1) of the Lo cal Government Act which is now section 68(1) of the said Act in the Laws of Uganda 2000, dealing with the removal of a Chief Administrative officer or a Town clerk from office. The said report is Annexure 'A' to the application. }{ \cf1\lang2057\langfe1033\langnp2057\insrsid9075614 \par }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 The applicant was invited to the council meeting of the 29}{\cf1\lang2057\langfe1033\super\langnp2057\insrsid9075614\charrsid14576819 th _}{ \cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 \-30}{\cf1\lang2057\langfe1033\super\langnp2057\insrsid9075614\charrsid14576819 th}{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 of April 2003, the minutes of which are Annexure 'D' to the application to defend himself. The applicant gave an explanation of each and every allegation levelled against him. Without making a finding as to whethe r the applicant had exonerated himself or not the council resolved to purportedly forgive him apparently for the sake of reconciliation. I am of the view that the applicant was entitled to know from the council if in the light of his defence he was found to be guilty or innocent of the accusations against him. }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614 \par }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 In another council meeting six or so months later, at which the applicant was absent, and following the speaker's communication from the chair to the effect that the applicant was still involved in t he activities for which the select committee had accused him, the council resolved unanimously to refer the Select Committee's report to the chairman of the District Service commission. Upon receipt of this said report the District Service Commission inte rdicted the applicant. The applicant's complaint is that both the council and the District Service Commission took action against him without being heard contrary to the principles of }{ \b\ul\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 audi alterem}{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 and at that after the Council had absolved him and opted for reconciliation. \par }\pard \s15\qj \li14\ri0\sl360\slmult1\nowidctlpar\faauto\rin0\lin14\itap0\pararsid9075614 {\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 Mr. Alaka, learned counsel for the respondent submitted that it was not within the power of the council to forgive the applicant and that the applicant was not entitled to be heard before being interdicted by the chairman District Service Commission because the latter was fulfilling his administrative functions to ensure public administration ran smoothly. He relied on the decision of }{\b\ul\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 Katusi . J. in Barishaki vs.}{ \ul\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 }{\b\ul\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 Attorney General (Supra). }{\b\ul\cf1\lang2057\langfe1033\langnp2057\insrsid9075614 \par }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 I agree with Mr. Alaka that the council has no powe r to forgive its CAO if he has been implicated in acts that render him liable for removal from office under section 18 of Local Government Acts, Laws of Uganda 2000. However the council can only put in motion the process of removing the CAO after satisfyi n g itself that indeed the CAO is guilty of the accusation levelled against him. In the instant case after listening to the defence of the applicant the council did not come up with any finding as to whether the applicant was innocent or guilty of the alleg ations against him. Six months later, on the 23}{\cf1\lang2057\langfe1033\super\langnp2057\insrsid9075614\charrsid14576819 rd}{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 October 2003 following remarks in his communication from the chair by the speaker that the acts the applicant had been accused of were continuing, the council proceeded to pass a resolution referring the Sel ect Committee' report to the chairman District Service Commission. The Speaker made those remarks casually and in passing. They were not the result of any investigations. The Speaker did not reveal the source of his knowledge that the abuses the applicant

had been accused of and of which he was not proved guilty were continuing. The council also resolved to refer the report to the chairman District Service Commission when the applicant was absent thus denying him an opportunity to defend himself. The counc il's act of passing he resolution in the absence of the applicant greatly violated the cherished principle of natural justice of audi alterem. }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614 \par \par }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 Under Section 68(1) of the Local Governments Act Laws of Uganda 2000 which was Section 69(1) of the Local Govern ments Act 1997, under which the council resolved to refer the report of the Select Committee to the Chairman District Service Commission, such a resolution requires to be supported by 2/3 of the Council members. In minute 37/2003 of the council meeting of the 23}{\cf1\lang2057\langfe1033\super\langnp2057\insrsid9075614\charrsid14576819 rd}{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 October 2003 it is recorded that the resolution to refer the Select Committee's report to the chairman District Service Commission was passed unanimously. Mr. Donge submitted that section 68(1) of the act requires the 2/3 support to be expressed i n percentage points and that unanimously does not express such point in percent points. I agree with the interpretation assigned to section 68(1) of the Local Government Act by Mr. Donge. When the minute of the meeting states that the resolution was suppo r ted unanimously does this means all the councilors including those who were not in the council meeting supported it. Did the councilors vote all in support of the resolution by show of hands or by secret ballot or by acclamation? Did any- body abstain? Th i s introduces doubts and uncertainties as to whether the council complied with the 2/3 requirement. It is true as submitted by Donge that when a decision affects the rights of an individual, the procedures laid down of arriving at such a decision must be s t rictly complied with. In the instant case the resolution put into motion the process of removing the applicant from his office and therefore that resolution should have been passed in strict compliance with section 68(1) of the Act. As that was not the ca se, the said resolution was passed irregularly. }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614 \par \par }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 Mr. Alaka submitted that the applicant in seeking the remedies in his application, was confusing the disciplinary control of the District Service Commission which under section 58(1) of the Local Government Act is independent and not subject to the direction or control of any person with the procedure of the removal of a Chief Administrative Officer under section 68(1) of the Local Government Act - Laws of Uganda 2000. He argued that though the procedure for the removal of a CAO is laid down, no procedure is laid down for the exercise of disciplinary control. }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614 \par }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 I beg to disagree as the above position is not borne out by the facts. The whole process from the time the council passed the resolution to the Chairman of the District Service Commission interdicted the applicant was intended to remove the applicant from the office of Chief Administrative Officer under Section 68(1) of the Local Government Act Laws of Uganda 2000. The resolution to send the Select Commi t tee's report to the District Service Commission was made under Section 69(1) of Local Governments Act 1997 which is now Section 68(1) of the Laws of Uganda 2000 which deals with the removal of the Chief Administrative Officer. Again in Annexure "C" to the

application the Speaker of the Respondent council in inviting the applicant to respondent to the accusations states that the Select Committee was established under Section 69(1) of the Act. In turn in interdicting the applicant the Chairman District Servi c e Commission refers to the above letter of the Speaker of the council. The above together with the fact that the resolution sent to the Chairman District Service Commission alleged against the applicant offences listed in section 68(1) of the Act all show

that the acts of the council and the chairman District Service Commission were not mere disciplinary control but intended to remove the applicant from office. Having initiated the process of the removal of the applicant, the council ought to have strictly

complied with the laid down legal procedure for removing a CAO. Section 25(1) of the Local Governments Act 2001 which amended section 69 of the Local Governments Act 1997 which Section 68 of the Act in the Laws of Uganda 2000 provides that with the except i on of sub sections (3) (4) (5) (6) AND (8) of section 15 of the Local Governments Act 1997 which is section 14 in the laws of Uganda the rest of the procedure for removing the L. C. V from office shall apply to the removal of the CAO. Sub section (2) of sec t ion 14 of the local Government Act Laws of Uganda 2000 which applies to the removal of a CAO provides that for purposes of removing the chairperson and therefore by inclusion the CAO a notice in writing signed by not less than one third of all members of the council shall be submitted to the Speaker;- \par {\listtext\pard\plain\s15 \cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 \hich\af0\dbch\af0\loch\f0 a)\tab}}\pard \s15\qj \fi-360\li1080\ri14\sb513\sl360\slmult1\nowidctlpar \tx730\jclisttab\tx1080\tx1426\faauto\ls3\rin14\lin1080\itap0\pararsid9075614 {\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 Stating that they intend to pass a resolution of the council to remove the chairperson on any of the grounds set out in sub - Section (1) \par {\listtext\pard\plain\s15 \cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 \hich\af0\dbch\af0\loch\f0 b)\tab}}\pard \s15\qj \fi-360\li1080\ri23\sb508\sl360\slmult1\nowidctlpar \jclisttab\tx1080\faauto\ls3\rin23\lin1080\itap0\pararsid9075614 {\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 Setting out the particulars of the charge supported by the necessary documents where applicable, on which it is claimed that the conduct of the chairperson (in this case the CAO) be investigated for purposes of his or her removal }{ \cf1\lang2057\langfe1033\langnp2057\insrsid9075614 \par }\pard \s15\qj \li0\ri23\sb508\sl360\slmult1\nowidctlpar\faauto\rin23\lin0\itap0\pararsid9075614 {\cf1\lang2057\langfe1033\charscalex87\langnp2057\insrsid9075614\charrsid13663839 In}{ \b\cf1\lang2057\langfe1033\charscalex87\langnp2057\insrsid9075614\charrsid14576819 }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 the instant case before the resolution to the council under section 69 of the Local Governments Act 1997 no such notice signed by 2/3 of the members of the council was submitted to the Speaker apart from the Select Committee's report. The council violated this provisions and rule of procedure by passing a resolution under section 69 of the 1997 Act. The equivalent of which is Section 68 of the Act Laws of Uganda 200 without submitting a notice signed by 2/3 of the members of the council to the Speaker.

\par }\pard \s15\qj \li0\ri0\sl360\slmult1\nowidctlpar\faauto\rin0\lin0\itap0\pararsid9075614 {\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 Fro m the contents of Section 25 (2)(6) of the Local Governments (Amendment) Act 2001 and from the terms of Section 14(1) and 14(2) of the Local Governments Act - laws of Uganda 2000, a resolution passed under Section 69 now 68 of the Act Laws of Uganda is fo r the removal of the officers in that category. In the instant case the resolution of the council of the meeting held on the 23}{\cf1\lang2057\langfe1033\super\langnp2057\insrsid9075614\charrsid14576819 rd}{ \cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 October 2003 under minute 37/2003 merely resolved to refer the Select Committee's report to the District Service Commission Cha irman but the resolution was not to remove the applicant from office as envisaged under Section 68 of the Governments Act Laws of Uganda and Section 25 2(b) of the Local Governments (Amendment) Act 2001. Section 25(2)(b) of the Local Governments (Amendmen t ) Act envisages that the council's resolution to remove the CAO be forwarded to the chairperson of the District Service Commission together with the necessary supporting documents. In my view these documents include the notice to the Speaker signed by not

less than 2/3 of the members of the council setting out the particulars of the charges against the CAO under Section 14(2) of the Act Laws of Uganda 2000. As such a purported resolution was not submitted with the above said notice because no such notice w as prepared. The matter was irregularly referred to the chairperson District Service Commission. }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614 \par \par }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 Mr. Donge complained that the Chairperson District Service Commission acted wrongly by interdicting the applicant because he was not requested by the council to take any action against the applicant. }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614 \par \par }\pard \s15\qj \fi720\li0\ri0\sl360\slmult1\nowidctlpar\faauto\rin0\lin0\itap0\pararsid9075614 {\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 Section 55(4) of the Local Governments Act provides as follows;- }{ \cf1\lang2057\langfe1033\langnp2057\insrsid9075614 \par }\pard \s15\qj \li710\ri0\sl360\slmult1\nowidctlpar\faauto\rin0\lin710\itap0\pararsid9075614 {\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 "(4) The District Service Commission shall in relation to its functions spelt out in subsection (1) act only upon the request and submission of the relevant council" \par }\pard \s15\qj \li0\ri32\sb556\sl360\slmult1\nowidctlpar\faauto\rin32\lin0\itap0\pararsid9075614 {\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 In the instant case the Respondents Council resolved to refer the Select Committee's report to the chairperson. The Resolution apart from not being accompanied with a notice signed by 2/3 of the Council members pursuant to Section 14 ( 2) of the Local Governments Act was not a resolution for the removal of the applicant. All the same the chairperson of the District Service Commission contrary to his mandate went a head to interdict the applicant. In doing so that chairperson acted in co ntravention of Section 55(5) of the Local Governments Act and thus exceeded his powers. }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614 \par }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 Mr Alaka submitted that the interdiction of the applicant by the chairperson should not be interfered with because it was done by way of disciplinary control. He argued that in the exercise of their duties section 58(1) of the Act makes them independent and not subject to the direction or control of any person or authority. Counsel argued that the interdiction can not be illegal because it was done by the body mandated to effect it and that in any case it did not require a fair hearing. He relied on the case }{\b\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 of }{\b\ul\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 Cheborion Birashaki vs. Attorney General}{\b\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 (supra) }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 for this proposal. }{ \cf1\lang2057\langfe1033\langnp2057\insrsid9075614 \par }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 That case was largely, if not exclusively, decided on the provisions of Regulation 36 of the Public Service Commission which reads;- \par }\pard \s15\qj \li705\ri62\sb499\sl360\slmult1\nowidctlpar\faauto\rin62\lin705\itap0\pararsid9075614 {\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 "Where a responsible officer considers that public interest requires that a public officer ceases to exercise the powers and functions of his office he shall interdict the officer from exercising those powers and fun ctions if proceedings for his dismissal are being taken or about to be taken or if criminal proceedings are being instituted against him" }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614 \par }\pard \s15\qj \li0\ri62\sb499\sl360\slmult1\nowidctlpar\faauto\rin62\lin0\itap0\pararsid9075614 {\cf1\lang2057\langfe1033\langnp2057\insrsid9075614 That regulation}{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 gives a lot of discretionary latitude to the responsible officer. He can act alone on his own if he c onsiders that interdicting an officer is for the Public good. This is not the case with the District Service Commission. Before interdicting a CAO or Town Clerk the chairperson must have been requested to do so by a resolution supported by 2/3 of the memb e rs of the council. The council must also have properly arrived at the resolution by complying with the procedure set out in section 14(2) of the Local Governments Act which requires 1/3 of the members of the council to have signed the notice of its intent ion to remove any of the two officers and have it sent to the Speaker. In the instant case the \\ council never sent a notice to the Speaker duly signed by 1/3 of the members of the council nor did the resolution of the council request the chairperson of the District Service Commission to remove the CAO. In interdicting the applicant when there was no valid resolution to remove him the chairperson of the District Service Commission acted}{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614 }{ \cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 irregularly and ultra Vires. I agree that the District Service Commission is independent and that in the performance of their duties they are not subject to the direction and control of any person or authority. This is true if they perform their functions according to the law. If however they act ultra vires and contrary to th e procedure laid down by the law, their actions like any other bodies are subject to judicial review. }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614 \par }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 As Certiorari lies to a body acting without or In excess of jurisdiction or as breach of the rules of nat ural justice or irregularly contrary to set procedural rules and it has been demonstrated above in the above ruing that both the Council and the Chairperson acted contrary to the procedure laid down to remove the applicant and that the council acted contr a ry to the rules of natural justice and in violation of the principle audi alterem, an order of Certiorari hereby issues quashing the council proceedings leading to the Resolution which purported to remove the applicant by the Chairperson of the District S ervice Commission. \par }\pard \s15\qj \li14\ri0\sl360\slmult1\nowidctlpar\faauto\rin0\lin14\itap0\pararsid9075614 {\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 The applicant also prayed that as a consequential order the respondent should be ordered to reinstate him as the Chief Administrative Officer. This is not really necessary as even the Respondent concedes that the applicant is the substan tive Chief Administrative officer of Arua District. As both the resolution of the council and the interdiction are quashed the applicant automatically reverts to the substantive post of Chief Administrative Officer Arua District Grant an order reinstating him would be superfluous. }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614 \par }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 The applicant claims general damages for inconvenience and defamation. Mr. Donge proposed a figure of shs 80,000,000/=. Under Order 42 A rule (8) Civil Procedure (Amendment) (Judicial Review) Rules damages may be awarded to an applicant if \par {\listtext\pard\plain\s15 \cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 \hich\af0\dbch\af0\loch\f0 a)\tab}}\pard \s15\qj \fi-360\li1080\ri61\sb504\sl360\slmult1\nowidctlpar \tx686\jclisttab\tx1080\tx1387\faauto\ls4\rin61\lin1080\itap0\pararsid9075614 {\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 He or she included in the statement in support of his or her application for leave under rule 4 of this order a claim for damages arising from any matter to which the application relates. \par {\listtext\pard\plain\s15 \cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 \hich\af0\dbch\af0\loch\f0 b)\tab}}\pard \s15\qj \fi-360\li1080\ri76\sb508\sl360\slmult1\nowidctlpar \tx677\jclisttab\tx1080\tx1373\faauto\ls4\rin76\lin1080\itap0\pararsid9075614 {\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 The Court is satisfied that if the claim had been made on an action begun by the applicant at the time of making his or her application he or she could have been awarded damages. }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614 \par }\pard \s15\qj \li0\ri76\sb508\sl360\slmult1\nowidctlpar\tx677\tx1373\faauto\rin76\lin0\itap0\pararsid9075614 {\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 I am of the view that to award such damaged the applicant should prove them. I am satisfied that by the respondent denying the applicant an opportunity to be heard and by the Chairperson of the District Service Commission interdicting the applicant when a request to him to do so was not properly before him, the applicant suffered damages and inconveniences. He is accordingly ent itled to damages. Mr. Donge did not however give a basis of his proposed shs 80,000,000/=. Considering the circumstances as a whole, I consider an award of shs 50,000,000/= by way of general damages will meet the justice of the case. }{ \cf1\lang2057\langfe1033\langnp2057\insrsid9075614 \par }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 With regard to damages for defamation I am of the view that the applicant has not prove at all that the publications he based his claim on were defamatory. The matters were not helped when he did not even set out the offending publications No award will therefore be given unde r that head. \par }\pard \s15\qj \li0\ri0\sl360\slmult1\nowidctlpar\faauto\rin0\lin0\itap0\pararsid9075614 {\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 \sect }\sectd \pgwsxn12240\pghsxn15840\marglsxn1800\margrsxn1800\margtsxn1440\margbsxn1440\linex0\endnhere\sectlinegrid360\sectdefaultcl\sftnbj \pard\plain \s15\qj \li9\ri0\sl360\slmult1\nowidctlpar\faauto\rin0\lin9\itap0\pararsid9075614 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cf1\lang2057\langfe1033\langnp2057\insrsid9075614 \par \par }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 The applicant also prayed for exemplary damages. It is now trite that exemplary damages are awarded against Government for the wanton arbitrary, oppressive and unconstitutional acts of its servants. The acts of the responde nt's council and the Chairperson of the District Service Commission in this instant case don't fit the description of being the type of the servants of the Government envisaged. All in all no damages can be awarded under this head. }{ \cf1\lang2057\langfe1033\langnp2057\insrsid9075614 \par }{\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid14576819 In the result the writ of Certiorari hereby issues quashing the proceedings of the Respondent's council purportedly referring its resolution to the Chairperson of the District Service Commission and the interdiction of applicant by the chairperson of the District Service Commis sion. The respondent shall pay shs 50,000,000/= as general damages with interest at Court rate from the date of this ruling till payment in full. The Respondent shall also pay the costs of the application. }{ \cf1\lang2057\langfe1033\langnp2057\insrsid9075614 \par \par Signed \par }{\b\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid3612965 JUGUSTUS KANIA JUDGE \par }\pard\plain \ql \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid9075614 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\b\cf1\lang2057\langfe1033\langnp2057\insrsid9075614\charrsid3612965 1.9.2005}{ \insrsid10825639 \par }}