Sekhonyana v Ketso and Others (CIV/APN 273 of 98) [1998] LSCA 105 (17 November 1998)

C I V / A P N / 2 7 3 / 98 IN T HE H I GH C O U RT OF L E S O T HO In the matter between B E R E NG A U G U S T I N US S E K H O N Y A NA Petitioner and L E K E T E K E TE V I C T OR K E T SO I N D E P E N D E NT E L E C T O R AL C O M M I S S I ON A T T O R N EY G E N E R AL 1st R e s p o n d e nt 2 nd R e s p o n d e nt 3rd Respondent Held at Maseru C o r a m: M a q u tu J Ramodibedi J Peete J J U D G M E NT R a m o d i b e di J In this m a t t er the petitioner w ho w as a c a n d i d a te for t he B a s o t ho National Party ( B N P) at C o n s t i t u e n cy N o . 32 M a s e ru C e n t r al for the G e n e r al Elections held on the 2 3 rd M a y, 1 9 98 h as petitioned this C o u rt for an o r d er c o u c h ed in the f o l l o w i ng t e r m s: "10.1 setting aside the parliamentary election in the M a s e ru Central Constituency N o . 3 2, held on 2 3 rd M ay 1 9 9 8, on a c c o u nt of the legal disqualification of First R e s p o n d e n t; 10.2 declaring the return of First R e s p o n d e n t, L E K E T E K E TE V I C T OR K E T S O, as h a v i ng b e en duly a nd validly elected a m e m b er of the National A s s e m b ly for the M a s e ru Central Constituency N o. 3 2, null a nd void a nd of no force a nd effect; 10.3 directing S e c o nd R e s p o n d e nt to arrange for fresh elections to be held in Constituency N o. 32 in a c c o r d a n ce with the relevant legislation in force; 10.4 directing R e s p o n d e n ts to p ay the costs hereof; 10.5 granting Y o ur Petitioner further a nd / or alternative relief." It should be noted at the outset that this j u d g m e nt h as b e en lying r e a dy to be delivered since the 16th S e p t e m b er 1 9 98 but d ue to c i r c u m s t a n c es b e y o nd the control of the C o u rt c a u s ed by the recent spate of disturbances in the country it w a s n 't possible to deliver it as originally anticipated. N ow for the story of the litigation. T he First R e s p o n d e nt is the current Minister of F i n a n ce following his successful election in w h i ch he beat the petitioner a nd other candidates to the post as a candidate for the ruling party n a m e ly T he L e s o t ho C o n g r e ss for D e m o c r a cy at Constituency N o . 32 M a s e ru Central at the aforesaid G e n e r al Elections of the 2 3 rd M ay 1 9 9 8. Admittedly he held this portfolio in the previous G o v e r n m e nt since J u ne 1 9 96 before the said G e n e r al Elections h a v i ng b e en s e c o n d ed f r om the National University of L e s o t ho w h e re he w as or is a lecturer in the Faculty of Social S c i e n c es (as will be s h o wn later it d o es not matter w h i c h ). T he b e d r o ck of the petitioner's complaint is that at all material times relevant a nd prior to the aforesaid G e n e r al Elections of the 2 3 rd M ay 1 9 98 the First R e s p o n d e nt held a substantive post of Lecturer at the National University of Lesotho. It is sought to p e r s u a de the C o u rt that the First R e s p o n d e n t 's post at the University is an office of e m o l u m e nt in the public service a nd that the University itself is for that matter f u n d ed by the G o v e r n m e nt of L e s o t ho thus rendering it, so the a r g u m e nt goes, not a private institution. It is the Petitioner's c a se therefore that at all material times the First R e s p o n d e nt held a public office for w h i ch he w as disqualified f r om being n o m i n a t ed or standing as a candidate in the G e n e r al Elections in t e r ms of Section 47 (c) (ii) of the National A s s e m b ly Elections O r d er 1 9 92 w h i ch provides as follows: " 4 7. (1) In addition to the disqualifications specified in section 59 of the Constitution, a p e r s on shall not be qualified - (c) To be elected a m e m b er of the National A s s e m b ly if, in t e r ms of subsection (4) of section 59 of the Constitution (i) He is a m e m b er of the D e f e n ce F o r c e, the Police Force, the National Security Service or the Prisons Service; or (ii) or he holds, or is acting in, a public office." N ow the t e rm "public office" is defined in S e c t i on 3 of the Interpretation A ct 1 9 77 as " a ny office of e m o l u m e nt in the p u b l ic s e r v i c e" w h i le the latter t e rm " p u b l ic s e r v i c e" is itself d e f i n ed in the A ct as service in respect of the G o v e r n m e nt In the s a me vein the Public Service A ct N o. 13 of 1 9 95 d e f i n es the t e rm " p u b l ic office" as h a v i ng the s a me m e a n i ng as in S e c t i on 1 54 of the C o n s t i t u t i on of L e s o t ho w h i ch in turn d e f i n es this t e rm as " a ny office of e m o l u m e nt in the p u b l ic s e r v i c e" w h i le the latter t e rm " p u b l ic s e r v i c e" is d e f i n ed therein as " t he service of the K i ng in respect of t he G o v e r n m e nt of L e s o t h o ." Of singular i m p o r t a n ce in so far as the instant c a se is c o n c e r n ed is the fact that S e c t i on 1 37 ( 1) of the Constitution of L e s o t ho p r o v i d es that the p o w er to a p p o i nt p e r s o ns to h o ld or act in offices in t he p u b l ic service vests in the Public Service C o m m i s s i o n. As will b e c o me clear in a short w h i le the s a me t h i ng c a n n ot be said of the e m p l o y e es of the N a t i o n al U n i v e r s i ty of L e s o t ho w ho are clearly n ot subject to the P u b l ic S e r v i ce C o m m i s s i o n. It is n e c e s s a ry at the outset t h en to e x a m i ne the e n a b l i ng statutory p r o v i s i on creating the N a t i o n al U n i v e r s i ty of L e s o t ho in o r d er to d e t e r m i ne w h e t h er the First R e s p o n d e n t 's p o st thereat is a p u b l ic office w i t h in the m e a n i ng of Section 47 (c) (ii)of the N a t i o n al A s s e m b ly Election O r d er 1 9 9 2. T he N a t i o n al University of L e s o t ho w as first established by the N a t i o n al U n i v e r s i ty A ct N o. 13 of 1 9 7 5. S e c t i on 2 of t he A ct significantly p r o v i d ed that the U n i v e r s i ty shall be a b o dy c o r p o r a t e. T h en f o l l o w ed the N a t i o n al University A ct N o. 10 of 1 9 76 S e c t i on 4 ( 1) ( a) of w h i ch p r o v i d ed as follows:- " 4. (1) T he National University of L e s o t ho established under the first A ct is h e r e by preserved, continued in existence a nd constituted under this A ct as b o dy corporate u n d er the n a me of the "National University of L e s o t h o" a nd by that n a me shall h a ve perpetual succession a nd a c o m m on seal a nd be c a p a b le by that n a me o f- (a) suing a nd being s u e d" ( e m p h a s is a d d e d ). S e c t i on 4 ( 1) of the N a t i o n al U n i v e r s i ty ( A m e n d m e n t) A ct N o. 4 of 1 9 85 also p r o v i d ed for the preservation of t he U n i v e r s i ty as a b o dy c o r p o r a te in exactly t he s a me t e r ms as section 4 ( I) of the N a t i o n al U n i v e r s i ty A ct N o. 10 of 1 9 7 6. T he N a t i o n al University of L e s o t ho A ct 1 9 76 w as s u b s e q u e n t ly r e p e a l ed by the current N a t i o n al University of L e s o t ho O r d er 1 9 92 ( S e c t i on 57 t h e r e o f) w h i ch c o n s o l i d a t ed t he l a ws relating to the university. It is pertinent to b e ar in m i nd h o w e v er that in t e r ms of section 3 ( 1) of t he n ew A ct n a m e ly the N a t i o n al U n i v e r s i ty of L e s o t ho O r d er 1 9 92 the university w as o n ce m o re preserved as a b o dy corporate in exactly the s a me t e r ms as Section 4 ( 1) of the repealed A ct of 1 9 7 6. T h us the N a t i o n al U n i v e r s i ty of L e s o t ho is a statutory juristic p e r s on c a p a b le of s u i ng a nd b e i ng s u ed in its o wn n a me I n d e ed the N a t i o n al University of L e s o t ho O r d er 1 9 92 h as p r o v i d ed for a u t o n o my of t he university by establishing C o u n c il w h o se p o w e rs a re best d e s c r i b ed in S e c t i on 1 0 ( 1) t h e r e of in the f o l l o w i ng t e r m s :- " 1 0. (1) T he Council shall be the s u p r e me g o v e r n i ng b o dy of the University" ( e m p h a s is a d d e d ). Significantly s u b s e c t i on 2 t h e r e of p r o v i d es that t he C o u n c il shall m a n a ge a nd control all the affairs, c o n c e r ns a nd property of the University a nd m ay act in all m a t t e rs c o n c e r n i ng the U n i v e r s i ty in s u ch m a n n er as a p p e a rs to it best calculated to p r o m o te the interests a nd f u n c t i o ns of t he University. R e g a r d i ng the question of a p p o i n t m e nt of staff it is n e c e s s a ry to b e ar in m i nd the provisions of subsection 10 ( 2) (f) w h i ch g i v es p o w er to the C o u n c il to a p p o i n t, d i s m i ss or r e m o ve f r om office a ny m e m b er of staff of the University. T h i s, it m u st be o b s e r v e d, clearly distinguishes the N a t i o n al U n i v e r s i ty of L e s o t ho f r om the P u b l ic Service. I n d e ed subsection 1 0 ( 2) ( n) of the N a t i o n al University of L e s o t ho O r d er 1 9 92 p r o c e e ds to g i ve p o w er to the C o u n c il to p r o v i de for the w e l f a re of all p e r s o ns in the e m p l o y m e nt of the U n i v e r s i ty i n c l u d i ng the p r o v i s i on of p e n s i on a nd retirement benefits. T h us they e a rn these benefits n ot as p u b l ic s e r v a n ts b ut as e m p l o y e es of the U n i v e r s i ty in its private c a p a c i ty as a statutory juristic p e r s on or b o dy c o r p o r a t e. In fairness to A d v. M o o sa for the Petitioner he h as c o n c e d e d, a nd rightly so in the C o u r t 's v i e w, that t he N a t i o n al U n i v e r s i ty of L e s o t ho is i n d e ed a b o dy corporate. He s u b m i ts h o w e v er that the C o u rt s h o u ld t a ke a b r o ad v i ew of t he m a t t er a nd c o n s i d er that in reality a lecturer of the U n i v e r s i ty is s o m e o ne paid by the G o v e r n m e nt a nd as s u ch he is a p u b l ic servant. In o t h er w o r ds it w as s o u g ht to p e r s u a de the C o u rt to b r o a d en the t e rm " p u b l ic o f f i c e" to i n c l u de a lecturer of the N a t i o n al U n i v e r s i ty of L e s o t h o. A d v. M o o sa h o w e v er w as u n a b le to refer the C o u rt to a ny authorities in the m a t t e r. In the C o u r t 's v i ew A d v. M o o s a 's s u b m i s s i on is, w i th respect, seriously f l a w ed b o th factually a nd legally. T he f o l l o w i ng f ew e x a m p l es s h o u ld suffice to highlight this: ( a) In t e r ms of S e c t i on 10 of the N a t i o n al U n i v e r s i ty of L e s o t ho O r d er 1 9 92 as s h o wn a b o ve t he a p p o i n t m e nt of lecturers to the University a nd p a y m e nt of their salaries is the sole responsibility of t he U n i v e r s i ty itself a nd n ot the G o v e r n m e n t. ( b) L e c t u r e rs of t he N a t i o n al U n i v e r s i ty of L e s o t ho are e m p l o y e es of the University a nd n ot the G o v e r n m e n t. A c c o r d i n g ly it is incorrect to call t h em public s e r v a n ts in as m u ch as t h ey do n ot a d m i n i s t er the b u s i n e ss of the G o v e r n m e nt w i t h in t he m e a n i ng of S e c t i on 2 of t he P u b l ic Service A ct 1 9 95 w h o se o b j e ct is to d e v e l op a nd m a i n t a in a p u b l ic service that will a d m i n i s t er t he b u s i n e ss of the G o v e r n m e nt of L e s o t h o. In t he s a me b r e a t h, a nd in the light of the a b o ve m e n t i o n ed statutory p r o v i s i o n s, t he p o st of lecturer at the N a t i o n al U n i v e r s i ty c a n n ot by a ny stretch of t he i m a g i n a t i on be t e r m ed a p u b l ic office. A ny o t h er interpretation of t he U n i v e r s i ty Statute w o u ld lead to an absurdity or result w h i ch the L e g i s l a t u re c o u ld n e v er h a ve i n t e n d e d. ( c) As earlier stated t he N a t i o n al U n i v e r s i ty of L e s o t h o, as a statutory juristic p e r s on e x e r c i s i ng a u t o n o m y, as it surely m u s t, is a private s e p a r a te legal entity f r om t he G o v e r n m e n t. U n l i ke G o v e r n m e nt institutions it exists n ot as a p u b l ic b o dy b ut as a private o n e. In d e a l i ng w i th a substantially similar situation, J o u r b e rt A JA h ad o c c a s i on to state the f o l l o w i ng in N g c w a se a nd O t h e rs v T e r b l a n c he NO a nd O t h e rs 1 9 77 ( 3) S . A. 7 96 at 8 0 3 - 8 0 4: " A c c o r d i ng to reg. 54 (1) fourth respondent school is a b o dy corporate w i th corporate personality. As a statutory juristic p e r s on (persona juris) it is in l aw considered to be an abstract legal entity w h i ch exists as a juristic reality in the contemplation of the l aw despite the fact that it lacks physical existence" ( e m p h a s is a d d e d ). W i th r e s p e c t, t h e se w o r ds are a p p o s i te to t he instant c a s e. It s h o u ld i n d e ed be b o r ne in m i nd that e v en at c o m m on l aw t he p o s i t i on of c o r p o r a t i o ns h as a l w a ys b e en that of p r i v a te p e r s o ns w i th individual rights of private p e r s o ns for as V o et p u ts it at 3.4.2.: " B ut corporations generally exercise the rights of private p e r s o n s, a nd are held to be in the position of private p e r s o n s, with the reservation that on the analogy of a state they are said to h a ve their o wn individual estate, a c o m m on chest a nd property in c o m m o n. H e n ce they c an b o th o we a nd t h ey c an be o w e d. T h ey c an s ue a nd be s u ed in private actions." In the result it m u st f o l l ow f r om t he a f o r e g o i ng that t he First R e s p o n d e n t 's p o st as L e c t u r er at the N a t i o n al U n i v e r s i ty of L e s o t ho is n ot a public office b ut a private o ne s e r v i ng t he n e e ds of a private c o r p o r a t i on or a statutory juristic p e r s on n a m e ly the University. A c c o r d i n g ly this petition falls to be d i s m i s s ed on this g r o u nd a l o ne in as m u ch as t he First R e s p o n d e nt d o es n ot h o ld or act in a public office by the m e re fact that he is an e m p l o y ee of t he N a t i o n al U n i v e r s i ty of L e s o t h o. T h e re is a further r e a s on w hy this petition c a n n ot stand. It is this: In t e r ms of S e c t i on 47 ( 2) ( a) of t he N a t i o n al A s s e m b ly E l e c t i o ns O r d er 1 9 92 a p e r s on w ho is a M i n i s t er is e x e m p t ed f r om the disqualification to be n o m i n a t ed or to stand for elections as a m e m b er of t he N a t i o n al A s s e m b ly in as m u ch as the t e rm "public office" as u s ed in the section specifically e x c l u d es the office of a M i n i s t er or Assistant M i n i s t e r. N o w, it is c o m m on c a u se that at the t i me of his n o m i n a t i on as a c a n d i d a te for election as a m e m b er of the N a t i o n al A s s e m b ly the First R e s p o n d e nt w as i n d e ed the holder of the office of Minister of the G o v e r n m e nt of L e s o t ho the position he held right t h r o u gh to the G e n e r al E l e c t i o ns of t he 2 3 rd M ay 1 9 98 w h e n, as earlier stated, he w as d u ly elected as a m e m b er of the N a t i o n al A s s e m b ly t h us p a v i ng t he w ay for his further a p p o i n t m e nt as a Minister. F a c ed w i th S e c t i on 47 ( 2) ( a) w h i ch definitively e x e m p ts a M i n i s t er f r om disqualification as set o ut a b o ve A d v. M o o sa d id n o t, in fairness to h i m, feel able to assert that the First R e s p o n d e nt w a s, as a M i n i s t e r, disqualified f r om s t a n d i ng for election as a m e m b er of t he N a t i o n al A s s e m b ly at the G e n e r al Elections of the 2 3 rd M ay 1 9 9 8. I n d e ed the e x e m p t i on p r o v i d ed for in f a v o ur of a M i n i s t er in the section sticks o ut like a s o re t h u m b. It m u st t h e r e f o re b e at a n y b o d y 's i m a g i n a t i on h ow the Petitioner or i n d e ed his legal representatives c o u ld h a ve failed to s p ot it. T he e x e m p t i on in q u e s t i on is sufficient to d i s p o se of this c a se a nd it is therefore strictly u n n e c e s s a ry for t he C o u rt to d e t e r m i ne the effect of t he fact that the First R e s p o n d e nt u n s u c c e s s f u l ly s o u g ht " l e a ve of a b s e n c e" f r om t he N a t i o n al University of L e s o t ho in o r d er to s t a nd for the G e n e r al E l e c t i o ns in question. T h e re c an be no d o u bt that he u n d u ly p a n i c k ed a nd that for r e a s o ns fully set o ut a b o ve it w as n ot n e c e s s a ry for h im to o b t a in l e a ve of a b s e n ce f r om the University in o r d er to s t a nd for elections. In all t he c i r c u m s t a n c es of the c a se therefore t he petition falls to be d i s m i s s ed w i th costs as b e i ng ill-founded a nd m i s c o n c e i v ed a nd it is so o r d e r e d. In t e r ms of S e c t i on 1 07 ( 1) ( a) of the N a t i o n al A s s e m b ly Elections O r d er 1 9 92 it f o l l o ws a u t o m a t i c a l ly that t he First R e s p o n d e nt L e k e t e k e te V i c t or K e t so h as to be d e c l a r ed as h a v i ng b e en validly elected as a M e m b er of the N a t i o n al A s s e m b ly for C o n s t i t u e n cy No. 32 M a s e ru C e n t r al a nd it is so o r d e r e d. I agree : I agree : M. M. R A M O D I B E DI J u d ge of the H i gh C o u rt W . C . M. MAQUTU J u d ge of the High C o u rt S. N. P E E TE J u d ge of the H i gh Court Delivered at M A S E RU on the 17th D ay of N o v e m b er 1998. F or the Petitioner: F or the First R e s p o n d e n t: M r. M a t s au A dv M o o sa (instructed by M e s s rs N t l h o ki & C o)