Lesotho Co-operative Handicrafts Ltd v Commission of Inquiry into Cooperatives (CIV/APN/471/93; C of A (CIV) 1/94) [1994] LSCA 126 (28 July 1994)

C of A (CIV) 1/94 C I V / A P N / 4 7 1 / 93 IN THE L E S O T HO COURT OF A P P E AL In the appeal of : L E S O T HO C O - O P E R A T I VE H A N D I C R A F TS LTD LESOTHO POULTRY C O - O P E R A T I VE UNION LTD LERIBE D I S T R I CT C O - O P E R A T I VE UNION LTD P H E L A - U - P H E L I SE C O - O P E R A T I VE U N I ON LTD MAFETENG D I S T R I CT C O - O P E R A T I VE U N I ON LTD 1ST A P P E L L A NT 2ND A P P E L L A NT 3RD A P P E L L A NT 4TH A P P E L L A NT 5TH A P P E L L A NT and THE C O M M I S S I ON OF I N Q U I RY INTO C O O P E R A T I V ES R E S P O N D E NT HELD AT MASERU CORAM: STEYN, J. A. B R O W D E, J. A. T E B B U TT A. J. A. S T E Y N. J. A. J U D G M E NT A p p e l l a n ts a p p l i ed in the Court b e l ow for an order in the following t e r m s: "Calling upon the R e s p o n d e nt to show c a u s e, if any, on a date to be d e t e r m i n ed by this H o n o u r a b le C o u r t, why: 1. T he d e c i s i on of t he R e s p o n d e nt of t he 1 4 th O c t o b e r, 1 9 93 r e f u s i ng t he A p p l i c a n t s' a t t o r n ey of r e c o rd t he r i g ht a n d / or t he o p p o r t u n i ty of p u t t i ng q u e s t i o ns to o ne N T S O K U N Y A NE M P H A N YA w ho a p p e a r ed as a w i t n e ss b e f o re t he R e s p o n d e nt s h a ll n ot be s et a s i de as c o n s t i t u t i ng an i r r e g u l a r i t y. 2. T he R e s p o n d e nt s h a ll n ot be o r d e r ed to s u p p ly t he A p p l i c a n t s' s a id a t t o r n ey w i th an e x t r a ct of t he e v i d e n ce of t he s a id M p h a n ya a nd t h e r e a f t er a r r a n ge a d a te a nd v e n ue at w h i ch t he A p p l i c a n t s' s a id a t t o r n ey s h a ll be a l l o w ed to q u e s t i on t he s a id M p h a n ya l i ke a ny o t h er w i t n e ss w ho a p p e a r ed b e f o re t he R e s p o n d e n t ." C e r t a in a n c i l l a ry r e l i ef w as c l a i m ed i n c l u d i ng a l t e r n a t i ve r e l i ef a nd c o s ts of s u i t. T he f a c ts a re t he f o l l o w i n g: By L e g al N o t i ce N u m b er 1 14 of 1 9 93 a C o m m i s s i on of I n q u i ry i n to C o - o p e r a t i v es ( t he R e s p o n d e n t) w as c o n s t i t u t e d. A p p e l l a n ts a v er t h at as C o - o p e r a t i v es t h ey " a re i n t e r e s t ed in t he d e l i b e r a t i o ns a nd c o n c l u s i o ns of t he R e s p o n d e n t ." S o me of t h e ir m e m b e rs h a ve b e en c a l l ed b e f o re t he R e s p o n d e nt to t e s t i fy a nd b e en s u b j e c t ed " to e x t e n s i ve q u e s t i o n i n g ." A p p e l l a n ts go on to a v er t h at at t he h e a r i ng of t he C o m m i s s i on t h e se w i t n e s s es w e re r e p r e s e n t ed by t h e ir a t t o r n e ys w ho w e re p e r m i t t ed to p ut q u e s t i o ns to t h o se w ho t e s t i f i ed b e f o re i t. T h e se a l l e g a t i o ns a re n ot d e n i ed on b e h a lf of t he R e s p o n d e n t. T he S e c r e t a ry of t he C o m m i s s i on s a ys h o w e v er t h at t he C o m m i s s i on is a " c o m m on l aw b o d y" a nd t h at " in t he a b s e n ce of a ny s t a t u t o ry p r e s c r i p t i on is e n t i t l ed to e x e r c i se i ts o wn p r o c e d u re as to h ow t h ey g a t h er t he f a c t s ." A ll w i t n e s s es w e re i n f o r m ed of t h e ir r i g ht to l e g al r e p r e s e n t a t i on a nd t h at if a n y o ne d e s i r ed to p ut q u e s t i o ns to a w i t n e ss t h ey c o u ld do so w i th t he l e a ve of t he c h a i r m a n. T he C o m m i s s i on is a c c o r d i ng to t he R e s p o n d e nt "a f a ct f i n d i ng b o dy p u re a nd s i m p l e ." ( T he " c o m m on law" n a t u re of C o m m i s s i o ns h as b e en c h a n g ed s i n ce t he h e a r i ng of t h is m a t t e r. S ee in t h is r e g a rd t he p r o v i s i o ns of t he P u b l ic I n q u i r i es A c t. 1 9 9 4, p u b l i s h ed in G o v e r n m e nt G a z e t te E x t r a o r d i n a ry of t he 2 4 th J u ne 1 9 9 4. T he p r o v i s i o ns of S e c t i o ns 11 a nd 12 a re i n s t r u c t i ve in r e g a rd to i s s u es in t h is a p p e a l. T he i s s ue b e f o re us a r i s es f r om e v e n ts t h at o c c u r r ed p u r s u a nt to t he t e s t i m o ny of o ne of t he w i t n e s s es w ho g a ve e v i d e n ce b e f o re t he C o m m i s s i o n. A c c o r d i ng to A p p e l l a n t s, on t he 1 4 th of O c t o b er 1 9 9 3, t he M i n i s t er of A g r i c u l t u r e, the H o n. M r. M p h a n y a, a p p e a r ed b e f o re t he C o m m i s s i on as a w i t n e s s. A c c o r d i ng to R e s p o n d e nt he d id so at h is o wn r e q u e st a nd "as a p u b l ic s p i r i t ed c i t i z e n" a nd " n ot in h is o f f i c i al c a p a c i ty as M i n i s t er of A g r i c u l t u re a nd C o - o p e r a t i v e s ." A c o py of h is t e s t i m o n y, to w h i ch I w i ll r e f er h e r e i n b e l ow w as p l a c ed b e f o re t he C o u rt a q u o. A f t er he h ad g i v en e v i d e n c e, A p p e l l a n t s' a t t o r n ey " m a de a r e q u e st to p ut c e r t a in q u e s t i o ns to t he s a id w i t n e s s, in c o n s i d e r i ng ( s i c) t h at h is e v i d e n ce t o u c h ed n ot o n ly u p on t he A p p l i c a n ts a nd t h e ir r i g h ts a nd u l t i m a te f a t e, b ut a l so d e a lt w i th e v i d e n ce g i v en by m e m b e rs of t he a p p l i c a n t s ." It is c o m m on c a u se t h at t he C o m m i s s i on d e c l i n ed t he r e q u e st by t he A p p e l l a n t s' l e g al r e p r e s e n t a t i ve to p ut q u e s t i o ns to t h is w i t n e s s. A c c o r d i ng to t he S e c r e t a ry of t he C o m m i s s i on it " d e c l i n ed to a l l ow h im to do so on t he s o le g r o u n ds ( s i c) t h at t h e re w as n o t h i ng in t he e v i d e n ce w h i ch a f f e c t ed t he A p p l i c a n ts in a ny m a n n e r ." A p p e l l a n ts s u b m i t t ed in t h e ir a p p l i c a t i on t h at t h is r u l i ng c o n s t i t u t ed a g r o ss i r r e g u l a r i t y. It w a s, t h ey c o n t e n d e d, a b r e a ch of t he a u di a l t e r am p a r t em r u le a nd c a u s ed t h em p r e j u d i c e. T h ey p o i nt to t he f a ct t h at t he C o m m i s s i on m ay w e ll a ct on s o me of t he e v i d e n ce of t he M i n i s t er a nd m ay e v en b a se s o me of i ts r e c o m m e n d a t i o ns on i t. R e s p o n d e nt p er c o n t ra c o n t e n d ed t h at t h e re w as no r i g ht to c r o s s - e x a m i n a t i on " e n v i s a g ed in t h is f a c t - f i n d i ng C o m m i s s i on of I n q u i r i e s" a nd t h at t he a u di a l t e r am p a r t em r u le d id n ot a p p ly to t h e se p r o c e e d i n g s. T he d u ty of t he C o m m i s s i on w as to m a ke a w r i t t en r e p o rt i n c l u d i ng r e c o m m e n d a t i o ns to t he M i n i s t e r. T he a l l e g a t i on t h at t he A p p e l l a n ts c o u ld be p r e j u d i c ed " is b a s e l e ss a nd is d e n i e d ." F or t he p u r p o s es of d e c i d i ng t he i s s u es b e f o re us it is n e c e s s a ry to a d v e rt to t he e v i d e n ce of t he M i n i s t e r. It is r e c o r d ed at p a ge 1 9 - 23 of t he r e c o rd a nd r e a ds as f o l l o w s: " WITNESS NO. 72 HON. MINISTER NTSUKUNYANE MPHANYA SWORN STATES 1. I am t he M i n i s t er of A g r i c u l t u r e, M a r k e t i ng s i n ce or f o l l o w i ng t he g e n e r al y e a r. C o - o p e r a t i v es a nd t h is e l e c t i on 2. I do n ot k n ow a b o ut t he f i n a n c i al d i f f i c u l t i es of B C BU b e c a u se I w as n ot in t he e x e c u t i ve C o m m i t t e e. 3. B ut I w as p r e s e nt at t he e l e c t i on of an e x e c u t i ve C o m m i t t e e. M r. M o k h e h le w as p r o p o s ed by t he B CP a nd M r. T h o m as M o f o lo w as s u g g e s t ed by o t h e r s. 4. T he f e ar of t he C o l o n i al M a s t e rs t h en w as t h at t he B CP w o u ld u se c o o p e r a t i v es w h i ch w e re v e ry s t r o ng t h an f or p o l i t i c al e n d s. As a r e s u lt M r. M o k h e h le a nd h is f e l l ow C o m m i t t ee m e m b e rs w e re e x p e l l ed a nd s o me w h i te m an t o ok o v e r. 5. T he C o m m i t t ee w as e x p e l l ed d u r i ng t he c o u r se of t he y e ar so it c a n n ot be c o r r e ct t h at it w as e x p e l l ed b e c a u se of a ny f i n a n c i al p r o b l e m s. 6. I w as a m e m b er of a c o o p e r a t i ve s o c i e ty at M a p o t e ng w h i ch I t h i nk we g ot b e n e f i ts f r om t he I h ad s t a r t ed m y s e l f. m o t h er b o dy in t he f o rm of i n p u t s. 7. T he d i s t r i b u t i on of i n p u ts w as d o ne by B C B U. 8. 9. My p e r s o n al v i ew is t h at g o v e r n m e nt s h o u ld not be i n v o l v ed in the r u n n i ng of c o o p e r a t i v e s. I am n ot s u re of w h at C o - op L e s o t ho w as of l a t e. of w h at it w as w h en it w as B C B U. I am s u re 1 0. I t h i nk of late it w as j u st a g o v e r n m e nt s h o p. 1 1. 1 2. 1 3. 1 4. 1 5. 1 6. 1 7. 1 8. 1 9. 2 0. I do not t h i nk t h at k i nd of C o - op L e s o t ho h as any p l a ce in the c o - o p e r a t i ve m o v e m e n t. I t h i nk s i n ce it is g o v e r n m e nt w h i ch led to the d o w n f a ll of C o - op L e s o t h o, the p r e s e nt g o v e r n m e nt s h o u ld put it b a ck in its feet and g i ve it b a ck to t he m o v e m e n t. C o - op L e s o t ho h as m a de i ts n a me in the c o u n t r y s i de a m o ng It h as p e o p le w ho a re not a w a re of i ts i n t e r n al p r o b l e m s, a m a s s ed g o od s e r v i ce to the p u b l ic if r e s t r u c t u r e d, i n f r a s t r u c t u re it c o u ld p r o v i de g o od and C o - op L e s o t ho w as h i j a c k ed e x i s t ed as a c o o p e r a t i ve in n a me o n l y. a long t i me b a c k. It h as no C o - op L e s o t ho h as to be r e t u r n ed c o m p a ny no m a t t er h ow big s h o u ld be a l l o w ed to run C o - op L e s o t h o. to the p e o p le and I t h i nk past g o v e r n m e n ts u s ed C o - op L e s o t ho to m i s u se or m i s a p p r o p r i a te p u b l ic f u n d s. As I s p e ak n ow we are o r g a n i s i ng C o - o p e r a t i v e s. h a ve c o u n t r y. c o - o p e r a t i v es m u s h r o o m i ng n ow all A nd we t he o v er I am n ot s a y i ng C o - op L e s o t ho h as to be h a n d ed b a ck o v e r- W h at n i g h t. p e o p le h a ve to be s e n s i t i s ed a b o ut is t h at it b e l o n gs to t h e m. P e r h a ps t h is c an t a ke two to t h r ee y e a r s. C o - op L e s o t ho w as r un as a g o v e r n m e nt s h op w i t h o ut k n o w l e d ge of p e o p le at g r a s s r o o ts l e v e l. t he T r ue e n o u gh C o - op L e s o t ho is in a m e ss n o w. i m p o r t a nt m i s a p p r o p r i a t ed g r a s s r o o ts l e v el o we t h at m u ch to C o - op L e s o t h o. they w e re p a y i ng c a s h. to n o te is t h at its f u n d s. I do n ot But w h at is w ho at I t h i nk it is n ot c o - o p e r a t o rs t h i nk p e o p le 2 1. T he m e ss w as n ot o n ly in C o - op L e s o t h o. s o c i e t i es had p r o b l e m s. But e v en m a ny 2 2. 2 3. 2 4. 2 5. 2 6. 2 7. 2 8. 2 9. 3 0. 3 1. I t h i nk the C o - o p e r a t i v es we a re f o r m i ng n ow a re d o i ng so f r e e ly w i t h o ut a ny i n t e r f e r e n ce f r om u s. Of c o u r se t he R e g i s t r ar g u i d es t h em h e re and t h e r e. Our m a n i f e s to did s ay we w o u ld e n c o u r a ge p e o p le to f o rm c o- o p e r a t i v es b ut we w i ll n ot f o r ce t h em to do s o. T h ey w i ll form t h em if t h ey f i nd t h at to be in t h e ir b e st i n t e r e s t, T he s m a ll c o - o p e r a t i v es t h at a re b e i ng f o r m ed a re o p e r a t i ng v e ry w e l l. It is j u st t h at t h ey do n ot h a ve the m a t t er b o d y, ( s i c) I t h i nk g e n u i ne c o - o p e r a t i v es h a ve a r i g ht to c l a im b a ck C o - op L e s o t h o, B ut as to w h e t h er t h ey c an h a ve it b a c k. I w o u ld k n ow a f t er g o i ng t h r o u gh t he C o m m i s s i o n e r 's r e p o r t, e s p e c i a l ly g i v en t he f a ct t h at t h o se m e m b er n e v er r e c e i v ed any r e p o r ts f r om C o - op L e s o t h o. C o - o p e r a t i v es in L e s o t ho h a ve b e en in t he m e ss t h ey w e re in b e c a u se of the p a st a u t h o r i t a r i an r u l e. A f t er t he C o m m i s s i o n 's r e p o rt we w o u ld h a ve to c a ll a ll c o- o p e r a t i v es t o g e t h er a nd s ee if t h ey w o u ld w a nt to r e c e i ve If t h ey do n ot w a nt t o, t he n e w ly f o r m ed the m o t h er b o d y. C o - o p e r a t i v es h a ve a r i g ht to do s o. t h at m i g ht a r i se is t h at of d i s t r i b u t i on of p r o p e r ty if t h e re is a n y. B ut I c a n n ot c o m m e nt on t h at n o w. T he p r o b l em a re a l r e a dy We h a ve d i s t r i b u t ed 1 20 t r a c t o rs to t he c o n s t i t u e n c i es and we a re s u b s i d i s i ng i n p u t s. f e ed p e o p l e. B ut we do n ot w a nt c o - o p e r a t i v e s. a s s i s t i ng to s p o on We We do n ot w a nt to u se c o - o p e r a t i v es as a p o l i t i c al w e a p on H e n ce we do n ot e v en m i nd a b o ut w ho g e ts e l e c t e d. at a l l. T h e re is no m o n ey o ut t h e re w a i t i ng to be g i v en to C o- o p e r a t i v e s. I k n ow U S A ID T he o n ly m o n ey c o n c e r n i ng l i q u i d a t i on of C o - op L e s o t ho and g r a z i ng f e e s. We said the A m e r i c a ns c o u ld k e ep t h e ir m o n ey if to h a ve it m e a nt t h at t h ey had to d i c t a te to us as to w h at we o u g ht to d o. m o n ey a b o ut f r om t he is T he C o - o p e r a t i v es w h i ch h a ve m u s h r o o m ed a re v i l l a ge C o- o p e r a t i v e s. 3 3. I w o n d er if y ou h a ve h ad t i me to l i s t en to o ur s p e e c h e s. i m p o s i t i on of t h i n gs on p e o p l e. We a re t o t a l ly a g a i n st T h is h as led to m a ny p r o j e c ts c o l l a p s i ng in the p a s t. 3 4. T he c o - o p e r a t i v es t h at a re b e i ng f o r m ed a re all v o l u n t a r y, 3 5. 3 6. 3 7. Y es C o - o p e r a t i v es h a ve b e en w i th us for a v e ry long t i m e. In f a ct one c o - o p e r a t i v es in M a f e t e ng w as f o r m ed in 1 9 3 9. C o - o p e r a t i v es are not n ew to B a s o t h o. term. n a me of " M a t s e m a ". W h at is n ew is the B a s o t ho h a ve all a l o ng used C o - o p e r a t i v es in the I t h i nk C o - o p e r a t i v es h a ve f a i l ed b e c a u se they h a ve t e n d ed to i m i t a te f o r e i gn v i e ws and the l a ws w e re a l so f o r e i g n. E v en the law that has to c o me w i ll h a ve to be r e f e r r ed to the c o - o p e r a t o r s. 3 8. M a t s e ma h a ve b e en s t r o ng a ll a l o n g. B ut t h ey got d i s t o r t ed a l o ng the way w h en t h ey w e re u s ed to w o rk on the c h i e f s' f i e l d s. 39. 4 0. 4 1. 4 2. 4 3. 4 4. I am not sure a b o ut the e d u c a t i on the n ew c o - o p e r a t o rs h a ve I h a ve been g i v e n. But I am s u re a b o ut t h e ir a c t i v i t i e s. s e en the " M p a te S h e l e n g s" c o - o p e r a te s u c c e s s f u l l y. If they s u c c e ed in " M p a te S h e l e n g" I do not s ee w hy they s h o u ld not s u c c e ed in " N t e m e le S h e l e n g ". We do a g r ee that we a re u n d e r s t a f f ed a nd we are p l a n n i ng on i n c r e a s i ng our s t a f f. The C o - o p e r a t i ve l a ws a re v e ry old and t h ey need to be u p- d a t e d. Y o u ng p e o p le f o rm c o m p a n i es and p a r t n e r s h i ps b e c a u se t h ey h a ve l e a r n ed a b o ut t h em in s c h o o l. B ut C o - o p e r a t i v es are f o r m ed not b e c a u se of w h at p e o p le h a ve l e a r n ed but b e c a u se I feel of a felt n e e d. y o u ng p e o p le are i n t e r e s t ed in c o - o p e r a t i v e s. I hold a d i f f e r e nt v i ew to y o u r s. One o t h er f a c t or w h i ch h as c o n t r i b u t ed to the d o w n f a ll of the c o - o p e r a t i ve m o v e m e nt is u n a v a i l a b i l i ty of a M a r k e t. I am t h i n k i ng of one big s u p e r m a r k et w i th d e p a r t m e n ts of p r i c i n g, s t a t i s t i cs and b u r e au of s t a n d a r ds and it s h o u ld w o rk hand in hand w i th the c o - o p e r a t i v es as an o u t l et for t h e se C o - o p e r a t i v e s. 4.00 p.m. T EA B R E A K. 4.15 P. M. is s t i ll u n d er o a t h. M e e t i ng c a l l ed to o r d er and W i t n e ss r e m i n d ed he 4 5. 4 6. 4 7. 4 8. 4 9. T he old o n es h a ve to be r e v i t a l i s e d. T he n ew C o - o p e r a t i v es a re n ot b e i ng f o r m ed at the e x p e n se of old o n e. In f a ct s o me old c o - o p e r a t i v es h a ve a l r e a dy c o me to the o f f i ce a nd we a re d e a l i ng w i th t h e ir p r o b l e m s. Co- o p e r a t i ve in M a f e t e ng w h e re a C o m m i t t ee w as i m p o s ed in the p a st is b e i ng a s s i s t ed n ow to h o ld e l e c t i o ns for a n ew C o m m i t t e e. F or e x a m p le o ne We h a ve had d i s c u s s i o ns w i th to h a ve a f a c u l ty of C o - o p e r a t i v es and o ur d i s c u s s i o ns in that r e g a rd are v e ry a d v a n c e d. the U n i v e r s i ty We a re w o r k i ng on h a v i ng c o - o p e r a t i ve o f f i c e rs in e v e ry d i s t r i ct and q u a l i f i ed s u p e r v i s o rs in e v e ry c o n s t i t u e n c y. We are a l so w o r k i ng in u p g r a d i ng d e p a r t m e nt of C o - o p e r a t i v e s. the p o s ts w i t h in the T he R e g i s t r a r 's d u ty is to r e g i s t er c o - o p e r a t i v es so l o ng as t h e ir by l a ws do n ot c o n t r a d i ct the m a in l a w. He s h o u ld not be i n f l u e n c ed in h is d e c i s i on m a k i n g. 5 0. Y es for a b o ut a y e ar or two I t h i nk g o v e r n m e nt w o u ld h a ve to p l ay s o me r o le but a f t e r w a r ds it s h o u ld pull o u t. 4.30 p . m. W I T N E SS E X C U S E D ." T he C o u rt a quo d i s m i s s ed the a p p l i c a t i o n. As I u n d e r s t a nd the j u d g m e nt it did so on two g r o u n d s, n a m e ly that A p p e l l a n ts f a i l ed to t a ke any s t e ps to r e b ut t he e v i d e n ce of the M i n i s t er a n d / or that t h ey f a i l ed to p r o ve t h at t h ey w e re p r e j u d i c ed by the r e f u s al to p e r m it c r o s s - e x a m i n a t i on of the M i n i s t e r. In t h is r e g a rd the C o u rt held t h at t h e re w as n o t h i ng the M i n i s t er s a id w h i ch m a de it i m p e r a t i ve to a sk h im q u e s t i o ns "in d e f e n ce of A p p l i c a n t s' i n t e r e s t s ." M r. T a m pi on b e h a lf of the R e s p o n d e nt c o n t e n d ed t h at to a p p ly the a u di a l t e r am p a r t em p r i n c i p le w o u ld be an u n w a r r a n t ed e x t e n s i on of t he r u l e. W i th r e f e r e n ce to t he f a ct t h at C o m m i s s i o ns " a re s i m p ly a n u m b er of i n d i v i d u a ls w ho a re e x p e c t ed to c o - o p e r a te a nd to o p e r a te w i t h in t he c o n f i n es of t h e ir c o m m i s s i o n" - s ee S v S p a r ks N . O. a nd o t h e rs 1 9 80 ( 3) S . A. 9 52 at 9 56 - he u r g ed us to h o ld t h at t he r u l es of n a t u r al j u s t i ce d id n ot a p p ly to t he p r o c e e d i n gs of a C o m m i s s i on of I n q u i r y. M r. T a m pi a l so r e l i ed on t he d e c i s i on in B e ll v V an R e n s b u r g, 1 9 71 ( 3) SA 6 93 f or t he p r o p o s i t i on t h at t he r u l es of n a t u r al j u s t i ce d id n ot n e ed to be o b s e r v ed by l e g al b o d i es ( r e g s i n s t a n s i e s) e x c e pt by C o u r ts of L aw a nd o t h er l e g al i n s t i t u t i o ns w h i ch h ad t he c a p a c i ty to t a ke d e c i s i o ns w i th r e g a rd to t he r i g h ts of p e r s o n s. No r i g ht to t he c r o s s - e x a m i n a t i on of w i t n e s s es t h e r e f o re e x i s t ed in r e s p e ct of C o m m i s s i o ns of I n q u i ry u n d er t he p r o v i s i o ns of t he C o m m i s s i o ns A ct t h en in f o r ce in S o u th A f r i c a. T he s a me a p p r o a ch C o u n s el u r g ed s h o u ld be a d o p t ed in t he K i n g d om of L e s o t h o. S ee a l so S o u th A f r i c an D e f e n ce a nd A id F u nd v M i n i s t er of J u s t i ce 1 9 67 ( 1) SA 2 63 ( A ). B a x t e r, A d m i n i s t r a t i ve L aw at p . 2 22 h as t he f o l l o w i ng i n s t r u c t i ve c o m m e nt c o n c e r n i ng C o m m i s s i o ns of I n q u i ry a nd t he m a n n er in w h i ch t h e ir p r o c e e d i n gs a re c o n d u c t e d: I n s t i t u t i o ns s u ch as c o m m i s s i o ns of i n q u i ry a re an i m p o r t a nt c h a n n el t h r o u gh w h i ch i n d i v i d u al a nd c o l l e c t i ve r e p r e s e n t a t i o ns m ay be t r a n s m i t t ed to d e c i s i o n - m a k e r s. T h ey a re u s ed r e g u l a r ly in S o u th A f r i c a. a nd t h e ir i n v e s t i g a t i o ns m ay o f t en l e ad to d e c i s i o ns w h i ch s e r i o u s ly a f f e ct i n d i v i d u al r i g h ts a nd i n t e r e s t s. T he r i g ht to m a ke r e p r e s e n t a t i o ns o u g ht to be c o n s t r u ed as l i b e r a l ly as p o s s i b le w h e re t he p o s s i b i l i ty of a d m i n i s t r a t i ve a c t i on a g a i n st i n d i v i d u al r i g h ts e x i s t s. Y et in at l e a st two S o u th A f r i c an d e c i s i o ns t he c o u r ts h a ve r e v e a l ed a s t r a n ge r e l u c t a n ce to a p p ly t he p r i n c i p l es of f a i r n e ss ( w h i ch a re d e s i g n ed to f a c i l i t a te p a r t i c i p a t i o n ). F or t h is r e a s on it is w o r th n o t i ng t he r e c o m m e n d a t i on by b o th t he C a n a d i an L aw R e f o rm C o m m i s s i on a nd t he N ew Z e a l a nd P u b l ic and A d m i n i s t r a t i ve L aw R e f o rm C o m m i t t ee t h at l e g i s l a t i on g o v e r n i ng c o m m i s s i o ns of i n q u i ry s h o u ld m a ke a d e q u a te p r o v i s i on for t he r i g ht of r e p r e s e n t a t i o ns by i n d i v i d u a ls w ho m ay be a d v e r s e ly a f f e c t ed as a r e s u lt of i n v e s t i g a t i o n s, a nd t h at c o m m i s s i o ns s h o u ld c o n d u ct t h e ir p r o c e e d i n gs in p u b l ic w h e r e v er p o s s i b l e. T h e re is e v e ry r e a s on to a d v o c a te s i m i l ar r e f o r ms in S o u th A f r i c a ." It is p o i n t ed out w i th v a l i d i ty in f o o t n o te 2 18 to t he a b o ve q u o t a t i on (at p a ge 2 2 3) a nd w i th r e f e r e n ce to the L aw R e f o rm C o m m i s s i on of C a n a da - C o m m i s s i on of E n q u i r y: a N ew A ct ( w o r k i ng p a p er 1 7 : 1 9 7 7 , 3 3) t h at in an e n q u i ry of t h is k i nd "a m an n ot s u s p e c t e d, let a l o ne c h a r g ed w i th w r o n g d o i ng m ay be r u i n ed by i r r e s p o n s i b le a c c u s e rs w h om he is n ot e v en a b le p r o p e r ly to c o n f r o n t ." M o r e o v er as t he a u t h or p o i n ts o ut at p a ge 5 5 6 - 5 55 of h is w o r k, c r o s s - e x a m i n a t i on m ay o f t en be t he o n ly m e a ns by w h i ch a d v e r se e v i d e n ce m ay be c h a l l e n g e d. He g o es on to s ay " t h at c r o s s - e x a m i n a t i on m ay be a r e q u i r e m e nt of a f a ir h e a r i ng w h e re it is n e c e s s a ry to s e r ve t he p u r p o s es of n a t u r al j u s t i ce - e s p e c i a l ly t h at of p r o m o t i ng a c c u r a c y ." ( P . 5 5 5 .) In t he l i g ht of t h e se c o m m e n ts a nd d e v e l o p m e n ts it m ay be n e c e s s a ry f or a r e c o n s i d e r a t i on of t he a p p r o a ch to be u n d e r t a k en t o w a r ds t he p r o c e e d i n gs b e f o re a C o m m i s s i on of E n q u i ry as f o r m u l a t ed in B e ll v R e n s b u rg ( s u p r a ). H o w e v e r, in my v i ew the f a c ts of t he p r e s e nt c a se a re c l e a r ly d i s t i n g u i s h a b le a nd c r e a t ed a s i t u a t i on in w h i ch t he r u l es of n a t u r al j u s t i ce s h o u ld be e n f o r c e d. I s ay t h is for t he f o l l o w i ng r e a s o n s: In R i d ge v B a l d w in 1 9 64 A . C 40 t he r i g ht to a f a ir h e a r i ng w as r e i n s t a t ed by t he H o u se of L o r ds as a r u le of u n i v e r s al a p p l i c a t i on in t he c a se of a d m i n i s t r a t i ve a c ts or d e c i s i o ns a f f e c t i ng r i g h t s. ( In t h is r e g a rd s ee a l so L o rd L o r e b u r n 's s t a t e m e nt t h at t he d u ty to a f f o rd it is "a d u ty l y i ng u p on e v e r y o ne w ho d e c i d es a n y t h i n g" ( c i t ed w i th a p p r o v al in W a d e: A d m i n i s t r a t i ve L a w, ( 4 th E d .) 4 5 1 .) H o w e v e r, it m u st be e m p h a s i s ed t h at " it is n ot p o s s i b le to lay d o wn r i g id r u l e s, as to w h en t he p r i n c i p l es of n a t u r al j u s t i ce a re to a p p l y; n or as to t h e ir s c o pe or e x t e n t. E v e r y t h i ng d e p e n ds on t he s u b j e ct m a t t e r ." ( P er L o rd D e n n i ng M . R. in R v G a m i ne B o a rd for G r e at B r i t a in e t c. [ 1 9 7 0] 2 Q . B . 4 17 at 4 3 0. T he " s u b j e ct m a t t e r" in the p r e s e nt c a se w as a C o m m i s s i on of E n q u i ry p r e s i d ed o v er by a J u d ge of t he H i gh C o u r t. T he C o m m i s s i on w as a p p o i n t ed to e n q u i re i n to " ( A) the o p e r a t i o ns of c o - o p e r a t i ve S o c i e t i es in g e n e r al and ( B) the o p e r a t i o ns of C o - op L e s o t ho in p a r t i c u l a r ." T he C o m m i s s i on had s e t t l ed on p r o c e d u r es w h i ch c o n f o r m ed to the p r i n c i p l es of n a t u r al j u s t i c e. W i t n e s s es and i n d i v i d u al p a r t i es w e re a l l o w ed l e g al r e p r e s e n t a t i on (a r i g ht now e n s h r i n ed in s e c. 12 of t he P u b l ic I n q u i r i es Act of 1 9 9 4) a nd the r i g ht to c r o s s - e x a m i ne w as e x t e n d ed in r e s p e ct of all w i t n e s s e s. A w i t n e ss - n o ne o t h er t h an the M i n i s t er r e s p o n s i b le for the a d m i n i s t r a t i on of t he s u b j e ct m a t t er of the e n q u i ry - is c a l l ed and t e s t i f i e s. H o w e v e r, w h en the r e p r e s e n t a t i ve of a n u m b er of a f f e c t ed C o o p e r a t i ve S o c i e t i es s e e ks to q u e s t i on h i m, the r e q u e st is r e f u s e d. T he s o le g r o u nd a d v a n c ed is that " t h e re w as n o t h i ng in the e v i d e n ce w h i ch a f f e c t ed t he a p p l i c a n ts in a ny m a n n e r ." I h a ve c i t ed the e v i d e n ce of t he M i n i s t er in e x t e n so a b o v e. I h a ve d o ne so b e c a u se a r e a d i ng of h is e v i d e n ce d e m o n s t r a t es t he u n a c c e p t a b i l i ty of the b a ld p r o p o s i t i on a d v a n c e d. W h i l st it is true that t he M i n i s t er did g i ve e v i d e n ce of a g e n e r al i m p o rt it was of a w i de r a n g i ng and f u n d a m e n t al n a t u r e. M o r e o v e r, he w as the v e ry p e r s on w ho w as g o i ng to d e c i de on t he r e s p o n se to the r e c o m m e n d a t i o ns of the C o m m i s s i o n. C r o s s - e x a m i n a t i on m ay h a ve e l i c i t ed i m p o r t a nt i n f o r m a t i on t h at c o u ld h a ve had a d i r e ct b e a r i ng on the f i n d i n gs and r e c o m m e n d a t i o ns of the C o m m i s s i o n. M o r e o v e r, the M i n i s t e r, h a v i ng t a k i ng the u n u s u al s t ep to t e s t i fy b e f o re the C o m m i s s i on he had a p p o i n t e d, s h o u ld h a ve b e en p r e p a r ed to f a ce t h o se a f f e c t ed by his v i e ws and h a ve b e en p r e p a r ed to r e s p o nd to t h e ir c o n t e n t i o ns and t h e ir v i e w s. T h ey c l e a r ly g a ve e v i d e n ce w h i ch c r i ed out for f u r t h er e x a m i n a t i o n, e l u c i d a t i on and p o s s i b le c h a l l e n g e. I am s a t i s f i ed t h at t h e re is no s u b s t a n ce in the c o n t e n t i o ns and the r e a s o ns a d v a n c ed for a r e f u s al to a l l ow c r o s s - e x a m i n a t i on to t a ke p l a c e. T he real r e a s on m ay w e ll h a ve b e en to p r o t e ct the M i n i s t er f r om w h at was b o u nd to h a ve b e en a c o n f r o n t a t i o n a l, and c h a l l e n g i n g, e x p e r i e n c e. H o w e v e r, the M i n i s t er h a v i ng d e c i d ed to e n t er the f r a y, s h o u ld h a ve b e en t r e a t ed in the s a me w ay as any o t h er w i t n e ss and n ot h a ve b e en a f f o r d ed the p r o t e c t i on e x t e n d ed to h im by the C o m m i s s i o n. M o r e o v e r, if it is n e c e s s a ry for the p a r ty w ho a l l e g es an i r r e g u l a r i ty of t h is k i nd to p r o ve p r e j u d i ce (a p o i nt w h i ch we do not f i nd it n e c e s s a ry to d e c i d e) t h e n, in t h e se p r o c e e d i n g s, s u ch p r e j u d i ce w as p r o v e d. It w as c l e a r ly i n s u f f i c i e nt for the R e s p o n d e nt s i m p ly to h a ve s o u g ht to a v o id the i n f e r e n ce of p r e j u d i ce by m a k i ng t he b a ld a l l e g a t i on it d i d. I am s a t i s f i e d, as a r e s u lt of a l l o w i ng c r o s s - e x a m i n a t i on of o t h er w i t n e s s es a nd t h e n, to t he p r e j u d i ce of A p p e l l a n ts r e f u s i ng s u ch a r e q u e st in t h e ir c a s e, a f a i l u re of j u s t i ce o c c u r r e d. T he p r o c e e d i n g s, p r e v i o u s ly a d m i n i s t e r ed in a c c o r d a n ce w i th n a t u r al j u s t i c e, c e a s ed to be so c o n d u c t e d. It f o l l o ws t h at A p p e l l a n ts h a ve e s t a b l i s h ed t h at t h ey a re e n t i t l ed to r e l i e f. H o w e v e r, it b e c a me c l e ar d u r i ng t he h e a r i ng of the a p p e al t h at t he C o m m i s s i on h ad a l r e a dy c o m p l e t ed i ts t a sk a nd h ad a l r e a dy r e p o r t ed to t he M i n i s t e r. M r. S e l lo w ho a p p e a r ed for the A p p e l l a n ts s a id t h at in t h e se c i r c u m s t a n c es it w o u ld m e et t he e x i g e n c i es of the c a se if t he C o u rt w e re to g r a nt A p p e l l a n ts an a p p r o p r i a te d e c l a r a t o ry o r d er t h at t h e ir r i g h ts h ad b e en i n f r i n g e d. A p r e c e d e nt c o n f i r m i ng t he n e ed f or t he r u l es of n a t u r al j u s t i ce to be o b s e r v ed w o u ld be of c o n s i d e r a b le i m p o r t a n c e. M r. T a m pi f or t he R e s p o n d e nt w as n ot h e a rd to r e s i st t he C o u rt f o l l o w i ng t h is c o u r se of a c t i on s h o u ld it d e c i de to g r a nt A p p e l l a n ts r e l i e f. I b e l i e ve t h at it w o u ld be r i g ht in p r i n c i p le f or us to a c c e de to t h is r e q u e s t. In a c o u n t ry w h i ch h as m o v ed to a d e m o c r a t ic o r d er a nd h as a d o p t ed a C o n s t i t u t i on t h at e n s h r i n es d e m o c r a t ic v a l u e s, it is i m p o r t a nt f or C o u r ts to be s u p p o r t i ve a l so in t he e s t a b l i s h m e nt of a h u m an r i g h ts c u l t u r e. T he o b s e r v a n ce of t he p r i n c i p l es of n a t u r al j u s t i ce i n c l u d i ng t he r i g ht to a f a ir h e a r i ng as r u l es of u n i v e r s al a p p l i c a t i on in d e c i s i o ns a f f e c t i ng r i g h t s, a re i m p o r t a nt c o m p o n e n ts of s u ch a c u l t u r e. In a c a se s u ch as t he p r e s e nt w h e re t he p r i n c i p l es of n a t u r al j u s t i ce h ad o r i g i n a l ly b e en f o l l o w ed b ut w h e re t h e r e a f t er a c l e ar a nd d i s c r i m i n a t o ry d e p a r t u re f r om t h e se p r i n c i p l es o c c u r r e d. I b e l i e ve t h at it w o u ld be r i g ht f or us to e x e r c i se o ur d i s c r e t i on to g r a nt a d e c l a r a t o ry o r d e r. T h at we h a ve t h is p o w er is c l e a r. A l t h o u gh t he A p p e l l a n t s' N o t i ce of M o t i on d id n o t, in c l e ar t e r m s, a sk f or a d e c l a r a t o ry o r d e r, it n e v e r t h e l e ss s o u g ht an o r d er s e t t i ng a s i de as c o n s t i t u t i ng an i r r e g u l a r i t y, t he R e s p o n d e n t 's d e c i s i on n ot to a l l ow c r o s s - e x a m i n a t i on of t he M i n i s t e r. T he p a p e rs r e v e al a d i s p u te in t h is m a t t er w h i ch is s u f f i c i e nt f o u n d a t i on f or a d e c l a r a t o r. In a ny e v e nt t he N o t i ce of M o t i on a s ks " f or f u r t h er or a l t e r n a t i ve r e l i e f ." W i th r e f e r e n ce to t he e f f e ct of t h at p h r a se s ee Q u e e n s l a nd I n s u r a n ce C o. L td v B a n q ue C o m m e r c i a le A f r i c a i ne 1 9 46 AD 2 72 in w h i ch at p 2 86 T i n d a ll J . A. r e f e rs to t he R o m a n - D u t ch p r a c t i ce of c o n s t r u i ng t he p h r a se as m e a n i ng " s u ch o t h er r e l i ef as t he C o u rt m ay d e em b e st f or t he p l a i n t i f f ." T he l e a r n ed j u d ge t h en s a id " T he e f f e ct of t he p r a y er f or " s u ch f u r t h er or o t h er r e l i ef as t he n a t u re of t he c a se m i g ht r e q u i r e" in t he E n g l i sh p r a c t i ce s e e ms to be t he s a m e. F or t h e se r e a s o ns we h a ve d e c i d ed to i s s ue t he f o l l o w i ng d e c l a r a t o ry o r d e r: " 1. T he d e c i s i on of t he R e s p o n d e nt of t he 1 4 th of O c t o b er 1 9 9 3. r e f u s i ng A p p l i c a n t s' a t t o r n ey of r e c o rd t he o p p o r t u n i ty of p u t t i ng q u e s t i o ns to t he w i t n e ss t he H o n o u r a b le M i n i s t er N t s u k u n y a ne M p h a n y a, w ho g a ve e v i d e n ce b e f o re t he R e s p o n d e nt c o n s t i t u t ed an i r r e g u l a r i ty in as m u ch as it p r e v e n t ed R e s p o n d e n ts f r om r e c e i v i ng a f a ir h e a r i ng b e f o re t he C o m m i s s i o n. 2. T he R e s p o n d e nt is to p ay t he c o st of s u i t ," T he a p p e al is a l l o w ed w i th c o s ts a nd t he a b o ve o r d er is s u b s t i t u t ed f or t he o r d er d e c r e ed in t he C o u rt b e l o w. I agree : I a g r ee : J. H. ACTING STEYN PRESIDENT J. BROWDE JUDGE OF APPEAL P. H. TEBBUTT JUDGE OF APPEAL D e l i v e r ed at M a s e ru t h is 2 8 th d ay of J u l y. 1 9 9 4. 18