Kauma Kagere Rose v Namutumba District Local Government Council (Misc. Appl. No. 433 Of 2008) (Misc. Appl. No. 433 of 2008) [2009] UGHC 163 (5 October 2009)

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\af0 \ltrch\fcs0 \insrsid2713611 \par }}{\footerr \ltrpar \pard\plain \ltrpar\s15\ql \li0\ri0\widctlpar\tqc\tx4320\tqr\tx8640\pvpara\phmrg\posxr\posy0\wraparound\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid2185391 \rtlch\fcs1 \af0\afs24\alang1025 \ltrch\fcs0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\field{\*\fldinst {\rtlch\fcs1 \af0 \ltrch\fcs0 \cs16\insrsid2713611 PAGE }}{\fldrslt {\rtlch\fcs1 \af0 \ltrch\fcs0 \cs16\lang1024\langfe1024\noproof\insrsid14753933 5}}}\sectd \ltrsect \linex0\endnhere\sectdefaultcl\sftnbj {\rtlch\fcs1 \af0 \ltrch\fcs0 \cs16\insrsid2713611 \par }\pard \ltrpar\s15\ql \li0\ri360\widctlpar\tqc\tx4320\tqr\tx8640\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin360\lin0\itap0\pararsid13132761 {\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2713611 \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 \ltrpar\qc \li0\ri0\sl360\slmult1 \widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14753933 \rtlch\fcs1 \af0\afs24\alang1025 \ltrch\fcs0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1705381\charrsid14753933 THE REPUBLIC OF UGANDA}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3946840\charrsid14753933 \par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1705381\charrsid14753933 IN THE HIGH COURT OF UGANDA, AT KAMPALA \par MISC. APPLICATION NO. 433 OF 2008 \par (Arising From Misc. Cause No.171 of 2008)}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1705381 \par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14753933 \par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1705381\charrsid14753933 IN THE MATTER OF SECTION 36, OF THE JUDGMENT ACT \par AND \par }\pard \ltrpar\ql \li0\ri0\sl360\slmult1\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14753933 {\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1705381\charrsid14753933 IN THE MATTER OF THE DECISION OF THE CHIEF \par ADMINISTRATIVE OFFICER, NAMUTUMBA DISTRICT}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14753933\charrsid14753933 \par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1705381\charrsid14753933 INTERDICTING MRS. KAUMA KAGERE ROSE, AS SENIOR ASSISTANT SECRETARY (Sub-County Chief)}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1705381 \par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14753933\charrsid14753933 \par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1705381\charrsid14753933 KAUMA KAGERE ROSE ::::::::::::::::::::::::::::::::::::::::::: }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14753933 }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1705381\charrsid14753933 APPLICANT \par \par }\pard \ltrpar\qc \li0\ri0\sl360\slmult1\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14753933 {\rtlch\fcs1 \af0 \ltrch\fcs0 \b\insrsid1705381\charrsid14753933 VERSUS \par \par }\pard \ltrpar\ql \li0\ri0\sl360\slmult1\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14753933 {\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1705381\charrsid14753933 NAMUTUMBA DISTRICT \par LOCAL GOVERNMENT COUNCIL :::::::::::::::::::::::::::: }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14753933 }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1705381\charrsid14753933 RESPONDENT \par \par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \b\insrsid1705381\charrsid14753933 BEFORE: HON. JUSTICE V. F. MUSOKE-KIBUUKA \par \par RULING: \par \par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1705381\charrsid14753933 In this motion, the applicant seeks the Prerogative Order of Certiorari calling for and quashing a decision of the Chief Administrative Officer (CAO) Namutumba District. \par \par }\pard \ltrpar\qj \li0\ri0\sl360\slmult1\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14753933 {\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1705381\charrsid14753933 The decision was contained in the CAO\rquote s letter, Ref. CR/207, dated 25}{\rtlch\fcs1 \af0 \ltrch\fcs0 \super\insrsid1705381\charrsid14753933 th}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1705381\charrsid14753933 June, 2008, which was attached to the motion as Annexture A. }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2713611\charrsid14753933 Through}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1705381\charrsid14753933 that letter, the CAO interdicted the applicant who was Senior Assistant Secretary/Sub-county Chief, Magada Sub-county. \par \par The motion was presented before the Judicature (Judicial Review) Rules, 2009, came into Force. There is a statement of facts accompanying the motion and an affidavit in support, deponed by the applicant. The contents of the two documents are virtually the same. \par \par However, in brief, the }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14753933\charrsid14753933 background to the motion appears}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1705381\charrsid14753933 to be that on 14}{\rtlch\fcs1 \af0 \ltrch\fcs0 \super\insrsid1705381\charrsid14753933 th}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1705381\charrsid14753933 May, 2008, there was an internal audit report relating to Magada Sub-county where the applicant was Sub-county Chief. On 5}{\rtlch\fcs1 \af0 \ltrch\fcs0 \super\insrsid1705381\charrsid14753933 th}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1705381\charrsid14753933 June, 2008, the CAO wrote a letter to the applican t laying charges against her and asking her to show cause why disciplinary action should not be taken against her. The applicant had, by law, to respond to the charges within 14 days. \par \par \par The letter by the CAO, was apparently, not served upon the respondent until 17}{\rtlch\fcs1 \af0 \ltrch\fcs0 \super\insrsid1705381\charrsid14753933 th}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1705381\charrsid14753933 June, 2008, when the applicant herself visited the CAO\rquote s office and saw it, whereby she signed the delivery book for it on that day. Nevertheless, on 25}{\rtlch\fcs1 \af0 \ltrch\fcs0 \super\insrsid1705381\charrsid14753933 th}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1705381\charrsid14753933 June, 08, the CAO wrote the impugned letter, interdicting the applicant from duty, alleg ing, inter alia, that the applicant had failed to comment on the audit report and show cause why disciplinary action should not be preferred against her. The interdiction was stated to have been imposed in accordance with regulation 36, of the Public Ser vice Commission Regulations, S.1. No. \par \par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3214482\charrsid14753933 It is the decision interdicting the applicant that is being challenged by the applicant through this motion.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1705381\charrsid14753933 \par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3214482\charrsid14753933 \par Learned Counsel Mr. Kwarisiima represented the applicant at the hearing of the motion. The hearing of the mo tion by order of court, proceeded ex-parte because the respondent did neither file an affidavit in position nor attend court on the hearing date in spite of effective service having been carried out.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3214482 \par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14753933\charrsid14753933 \par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3214482\charrsid14753933 The applicant\rquote s only complain is about alleged non-compliance with the principle of natural justice; the rule of }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\ul\insrsid3214482\charrsid14753933 audi alteram partem}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3214482\charrsid14753933 . She argues that the CAO had a duty to observe that rule of fair play in taking the decision to interdict the applicant which she did prior to the expiry of the 14 days set by law. Counsel accuses, the CAO of failing to take into account the applicant \rquote s response to the charges presented by her on 30}{\rtlch\fcs1 \af0 \ltrch\fcs0 \super\insrsid3214482\charrsid14753933 th}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3214482\charrsid14753933 June, 2008. }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2713611\charrsid14753933 He}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3214482\charrsid14753933 submitted that the applicant was condemned unheard which was in breach of the rule of natural justice. \par \par In Judicia l Review Proceedings, Under Section 36 of the Judicature Act and Rule 3 (1) (a), of the Judicature (Judicial Review) Rules, 2009, the court is concerned with the process through which the decision was made. The court is merely concerned with whether the decision-making authority of public officer, exceeded jurisdiction, committed an error in law, acted without jurisdiction or breached the rules of natural justice. }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14753933 \par \par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3214482\charrsid14753933 Thus Certiorari issues to quash decisions that are ultra vires or which are vitiated by error on the face of the record or are arbitrary and oppressive. In Re }{\rtlch\fcs1 \af0 \ltrch\fcs0 \b\insrsid3214482\charrsid14753933 An Application By Bukoba Gymkhana Club (1963) E. A. 473 and Haji Mohamed Besweri Kezaala Vs. The IGG and 2 Others Misc. Appl. No.28 of 2009 (unreported). \par \par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3214482\charrsid14753933 The concept of fairness in the adj udication as well as in administrative decision-making, where the body or public officer making the decision has a duty to act judicially or in a quasi judicial manner is well entrenched in our law. The principle of natural justice contains two necessary and obligatory rules or human conduct promulgated by nature through human reason. \par \par As known to Ugandan law, the rules of natural justice stand out as two prominent rules which are known and observed throughout the civilized world. They are:}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3214482 \par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14753933\charrsid14753933 \par {\listtext\pard\plain\ltrpar \rtlch\fcs1 \af38 \ltrch\fcs0 \f38\insrsid3214482\charrsid14753933 \hich\af38\dbch\af0\loch\f38 -\tab}}\pard \ltrpar\qj \fi-360\li720\ri0\sl360\slmult1\widctlpar \jclisttab\tx720\wrapdefault\aspalpha\aspnum\faauto\ls1\adjustright\rin0\lin720\itap0\pararsid14753933 {\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3214482\charrsid14753933 nemo judice in causa sua(no person shall be a judge in his or her own case) \par {\listtext\pard\plain\ltrpar \rtlch\fcs1 \af38 \ltrch\fcs0 \f38\insrsid3214482\charrsid14753933 \hich\af38\dbch\af0\loch\f38 -\tab}audi alteram partem(hear the other party)}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3214482 \par {\listtext\pard\plain\ltrpar \rtlch\fcs1 \af38 \ltrch\fcs0 \f38\insrsid14753933\charrsid14753933 \hich\af38\dbch\af0\loch\f38 -\tab}}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14753933\charrsid14753933 \par }\pard \ltrpar\qj \li0\ri0\sl360\slmult1\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14753933 {\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid290977\charrsid14753933 These two rules or principles of natural justice, according to the court of Appeal of Uganda, in }{\rtlch\fcs1 \af0 \ltrch\fcs0 \b\insrsid290977\charrsid14753933 Marko Matovu & 2 Others Vs. Sseviri & Another, Civil Appeal No.7, of 1978}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid290977\charrsid14753933 , must be observed by both }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2713611\charrsid14753933 judicial}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid290977\charrsid14753933 and administrative bodies. They must be observed by all bodies and public officers who have a duty to act }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2713611\charrsid14753933 judicially}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid290977\charrsid14753933 or quasi-Judicially. }{\rtlch\fcs1 \af0 \ltrch\fcs0 \b\insrsid290977\charrsid14753933 Abbot Vs. Sullivan [1952] 1 ALL. E. R. 226.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid290977\charrsid14753933 The modern view is that the duty to act fairly applied to almost all public decision making process. Article 42, of the Constitution of the Republic of Uganda leaves almost no doubt about the proposition. Also See: }{\rtlch\fcs1 \af0 \ltrch\fcs0 \b\insrsid290977\charrsid14753933 Halsbury Laws of England 4}{\rtlch\fcs1 \af0 \ltrch\fcs0 \b\super\insrsid290977\charrsid14753933 th}{\rtlch\fcs1 \af0 \ltrch\fcs0 \b\insrsid290977\charrsid14753933 Ed., Para 84. \par \par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid290977\charrsid14753933 In the instant case, regulation 36(1), of the Public Service, which the respondent purported to rely upon in taking the impugned decision}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2713611\charrsid14753933 ,}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid290977\charrsid14753933 required the respondent to carry out preliminary investigations and specifically allow 14 days within which the applicant would s tate, in writing, any ground on which she relied to exculpate herself. Since the letter written to the applicant by the CAO on 5}{\rtlch\fcs1 \af0 \ltrch\fcs0 \super\insrsid290977\charrsid14753933 th}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid290977\charrsid14753933 June, 2008, was not served on the applicant or received by her until 17}{\rtlch\fcs1 \af0 \ltrch\fcs0 \super\insrsid290977\charrsid14753933 th}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid290977\charrsid14753933 May, 2008, the 14 days statutorily required under regulation 36(1), of the Public Service Regulations would only begin to run from 17}{\rtlch\fcs1 \af0 \ltrch\fcs0 \super\insrsid290977\charrsid14753933 th}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid290977\charrsid14753933 June, 2008. by the date of interdiction letter, the applicant had not had 14 days within which to answer the charges but only 8 days. The decision to interdict her was prematurely taken. It was unfairly taken as the applicant was denied the opportunity which by virtue of the regulations she ought to have had. }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\ul\insrsid290977\charrsid14753933 Certiorari}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid290977\charrsid14753933 would issue upon that account. \par \par Still worse, the decision of the CAO stated in paragraph 3 of her letter of 25}{\rtlch\fcs1 \af0 \ltrch\fcs0 \super\insrsid290977\charrsid14753933 th}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid290977\charrsid14753933 June, 2008, }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14753933 \par \par }\pard \ltrpar\qj \li720\ri0\sl360\slmult1\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin720\itap0\pararsid14753933 {\rtlch\fcs1 \af0 \ltrch\fcs0 \b\insrsid290977\charrsid14753933 \'93 You are hereby in accordance with the Public Service (Commission) Regulations No. 36 interdicted from the exercise of the powers and functions of your office with immediate effect}{\rtlch\fcs1 \af0 \ltrch\fcs0 \b\insrsid13132761\charrsid14753933 \'94}{ \rtlch\fcs1 \af0 \ltrch\fcs0 \b\insrsid290977\charrsid14753933 . }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13132761\charrsid14753933 }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14753933 \par }\pard \ltrpar\qj \li0\ri0\sl360\slmult1\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14753933 {\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14753933 \par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13132761\charrsid14753933 It}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2713611\charrsid14753933 is clear to court that R}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13132761\charrsid14753933 egulations 36 was wrongly invoked by the CAO. That regulation does not vest the CAO with any jurisdiction or authority to interdict any officer. The regulation which contains that power is regulation 29 of the same regulations. An interdiction based upon regulations 36 was illegally effected as that regulation did not confer upon the CAO any powers of interdiction. }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\ul\insrsid13132761\charrsid14753933 Certiorari}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13132761\charrsid14753933 would also issue upon that account to quash the illegal decision of interdiction.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid290977\charrsid14753933 \par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13132761\charrsid14753933 \par Lastly, this motion was originally presented against the CAO, Namutumba District. Ordinarily, the motion would have been struck out for being presented against a non-legal entity which could not respond to it. \par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3214482\charrsid14753933 \par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2713611\charrsid14753933 Court, however, considering all the circumstances of the application ordered that Namutumba District Local G overnment Council, be substituted for the CAO, Namutumba District. It also took service that has been effected on 23}{\rtlch\fcs1 \af0 \ltrch\fcs0 \super\insrsid2713611\charrsid14753933 rd}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2713611\charrsid14753933 September 2008, to be effective service upon the respondent within the meaning of regulation 26(1) of the Local Government Councils Regulations, contained in the third Schedule to the Local Governments Act, Cap.243. \par \par The applicant\rquote s costs for this application shall be }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14753933\charrsid14753933 borne}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2713611\charrsid14753933 by the respondent. \par \par \par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \b\insrsid2713611\charrsid14753933 V. F. 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