IS
PARATE EXECUTIE COMPLIANT WITH THE PROVISIONS OF THE FORMER CONSTITUTION,
NAMELY, SECTION 18(9), AS READ WITH SECTION 16(7)?
The issue of whether or not parate executie complied
with the former Constitution is not, as counsel for the defendant, correctly
submitted, a new issue. The issue was raised in the case of Nyamukusa v
Agricultural Finance ...
IS
PARATE EXECUTIE COMPLIANT WITH THE PROVISIONS OF THE FORMER CONSTITUTION,
NAMELY, SECTION 18(9), AS READ WITH SECTION 16(7)?
The issue of whether or not parate executie complied
with the former Constitution is not, as counsel for the defendant, correctly
submitted, a new issue. The issue was raised in the case of Nyamukusa v
Agricultural Finance Corporation SC174-94. The facts of Nyamukusa v
Agricultural Finance Corporation SC174-94 are that the appellant's farm had
been seized and sold because the appellant had failed to repay a loan. The
respondent in the matter acted pursuant to a contractual clause, which read as
follows:
“Should the borrower commit or be in breach of any of the
terms and conditions of this agreement the Corporation specifically stipulates,
as provided in section 40 of the Act, that it shall have the right in
terms of that section of the Act, after demand by registered letter addressed
to the borrower at his last known address or to the address given by him in his
application for this loan, and without recourse to a court of law, to enter
upon the property hypothecated and to take possession thereof and sell and
dispose of the same in whole or in part as the Corporation may determine always
in terms of and subject to the provisions of the Act.”
The appellant in that matter challenged the above clause on
the basis that it offended the provisions of section 18(9) of the former
Constitution. The court held that the parate executie clause in Nyamukusa
v Agricultural Finance Corporation SC174-94 was lawful and permissible in terms
of section 18(9), as read with section 16(7), of the former
Constitution.
The plaintiff in casu, as in Nyamukusa v Agricultural Finance Corporation SC174-94, seeks to
rely on the “access to the courts” provision set out in section 18(9) of
the former Constitution, which provided:
“18 Provisions to secure protection of law
(9) Subject to the provisions of this Constitution, every
person is entitled to be afforded a fair hearing within a reasonable time by an
independent and impartial court or other adjudicating authority established by
law in the determination of the existence or extent of his civil rights or
obligations.”
The import of the words “subject to” is to render this
access to the courts provision subservient to other provisions of the former
Constitution.
In S v Pillay 1995 (2) ZLR 313 (H)…, Chatikobo J interpreted the meaning
of the phrase “subject to” in the following manner:
“The phrase 'subject to' has been interpreted to mean
'except as curtailed by'.”
See also Commissioner of Police v Wilson 1981 ZLR 451.
It follows, therefore, as counsel for the defendant
correctly submitted, that the “access to the courts” provision set out in section 18(9)
of the former Constitution is applicable except as curtailed by other
provisions of that Constitution. In the former Constitution, section 16(7)
curtailed section 18(9) in the following terms:
“16 Protection from
deprivation of property
(7) Nothing contained in or done under the authority of any
law shall be held to be in contravention of subsection (1) to the extent
that the law in question makes provision for the acquisition of any property or
any interest or right therein in any of the following cases —
(a) - (c)…,.
(d) As an
incident of a contract, including a lease or mortgage, which has been agreed
between the parties to the contract, or of a title deed to land fixed at the
time of the grant or transfer thereof or at any other time with the consent of
the owner of the land;…,.
except so far as that provision or, as the case may be, the
thing done under the authority thereof is shown not to be reasonably
justifiable in a democratic society.”
Thus, quite clearly, parate executie was permissible
in terms of section 16(7) of the former Constitution.
It is apparent, therefore, that the “access to the courts”
provision enshrined in section 18(9) of the former Constitution applies,
except as curtailed by section 16(7) of the former Constitution which
sanctions parate executie.
In the result, I am satisfied that the “access to the
courts” provision, enshrined in section 18(9) of the former Constitution,
applies, except as curtailed by section 16(7) of the former Constitution
which sanctions parate executie. The former Constitution did not outlaw
parate executie per se. It was lawful to the extent allowed by section 16(7)
of the former Constitution, which exception covered the facts of this case….,.
SHOULD THIS
COURT OUTLAW PARATE EXECUTIE ON THE GROUNDS OF PUBLIC POLICY?
Finally, counsel for the plaintiff submitted that
parate executie should be abolished as part of our common law on the
grounds that it offends public policy.
I am not persuaded by this argument for the following
reasons.
Counsel for the plaintiff submitted that this court should
reconsider the cases of Aitken v Miller 1950 SR 227; 1951 (1) SA 153 (SR) and
Changa v Standard Finance Ltd 1990 (2) ZLR 412 (SC), which cases are to the
effect that parate executie is both lawful and constitutional.
Counsel for the plaintiff urged the court to follow the
approach adopted by South African courts in the cases of Chief Lesapo v
North West Agricultural Bank and Anor 2000 (1) SA 409 (CC) and Findevco (Pty)
Ltd v Faceformat SA (Pty) Ltd 2001 (1) SA 251 (NPD), in which cases
parate executie was held to be both unlawful and unconstitutional.
In Chief Lesapo v North West Agricultural Bank and Anor
2000 (1) SA 409 (CC), the Constitutional Court of South Africa had this to
say…,:
“The judicial process, guaranteed by s 34, also
protects the attachment and sale of a debtor's property, even where there is no
dispute concerning the underlying obligation of the debtor on the strength of
which the attachment and execution takes place. That protection extends to the
circumstances in which property may be seized and sold in execution and
includes the control that is exercised over sales in execution.”
Thus, Chief Lesapo v North West Agricultural Bank and Anor
2000 (1) SA 409 (CC) is authority for the proposition that parate executie
is not only unlawful but unconstitutional, in that it violated the access to
courts right guaranteed by section 34 of the South African
Constitution.
Chief Lesapo v North West Agricultural Bank and Anor 2000
(1) SA 409 (CC) was followed in Findevco (Pty) Ltd v Faceformat SA (Pty) Ltd
2001 (1) SA 251 (NPD), where froneman j
had this to say…,:
“If legislation which allows the attachment and sale of
movable goods given as security without recourse to courts is unconstitutional,
even where there is no dispute about the debtor's indebtedness, why should the
common law allow it? I can see no valid reason why it should.
Section 39(2) of the Constitution applies to the interpretation of both
legislation and the common law. The leading case for upholding the validity of
parate executie clauses in respect of movables is Osry v Hirsch, Loubser
& Co Ltd 1922 CPD 531. In that case, the rule against self-help was
considered un-important (at 541, but compare Iscor Housing Utility Co and Anor
v Chief Registrar of Deeds and Anor 1971
(1) SA 613 (T) at 616H). Lesapo's case supra tells us that the rule is of
fundamental importance to our Constitution. I consider myself bound by the
ratio of Lesapo's case supra in the present matter.”
The above South African cases were interpreting section 34
of the South African Constitution, which provides as follows:
“Access to courts
34. Everyone has the right to have any dispute that can be
resolved by the application of law decided in a fair public hearing before a
court or, where appropriate, another independent and impartial tribunal or
forum.”
A comparison of section 34 of the South African
Constitution and section 18(9), as read with section 16(7) of the
former Constitution, reveals that the two provisions are very different. The
South African provision is much wider than the provisions of the former
Constitution. Thus, in terms of the former Constitution, parate executie
was expressly permitted.
Accordingly, the above cited South African cases are of
no assistance when interpreting section 18(9), as read with section 16(7)
of the former Constitution.
I accept, however, that section 34 of the
South African Constitution is very similar to section 69(2) and (3)
of the Constitution, although not couched in exactly the same terms. They are
of the same purport. I also accept that the cases of Chief Lesapo v North West
Agricultural Bank and Anor 2000 (1) SA 409 (CC) and Findevco (Pty) Ltd v Faceformat SA (Pty) Ltd 2001 (1) SA 251
(NPD) were interpreting section 34 of the South African Constitution
and are authorities for the proposition that parate executie is
unconstitutional in terms of section 34 of the South African
Constitution.
However, these two cases have not been followed in a number
of other South African cases. In some instances it was held that they were
wrongly decided.
In Bock v Duburoro Investments (Pty) Ltd 2004 (2) SA 242
(SCA) HARMS JA was led to
state the following in relation to the constitutionality of
parate executie clauses:
“…,. I find it difficult to extend the prescription of
these statutory provisions by the Constitutional Court to parate executie of
movables which are lawfully in the possession of the creditor….,. Since the
debtor may seek the protection of the court if, on any just ground, he can show
that, in carrying out the agreement and effecting a sale, the creditor acted in
a manner which prejudiced him in his rights, the creditor cannot be said to be
the judge in his own cause.”
In that case, the court came to the conclusion that the
judgment in Findevco (Pty) Ltd v Faceformat SA (Pty) Ltd 2001 (1) SA 251 (NPD),
finding that the law relating to parate executie of movables is
unconstitutional, was wrong.
Similarly, in Juglal v Shoprite Checkers (Pty) Ltd 2004 (5)
SA 248 (SCA) the Supreme Court of Appeal upheld the validity of a notarial
covering bond which entitled the creditor, in the event of default on the part
of the debtor, to take possession of the debtor's business and assets as
security for the debt, to sell the assets, and to apply the proceeds in
settlement of the debt as parate executie. The court a quo had
granted an order perfecting its security. The judge had expressly declined to
follow the Findevco (Pty) Ltd v Faceformat SA (Pty) Ltd 2001 (1) SA 251 (NPD)
case. HEHER J commented…,
that the refusal was justified by the decision in Bock v Duburoro Investments
(Pty) Ltd 2004 (2) SA 242 (SCA). He also declared…, that the common law in
relation to parate executie does not limit the right of access to the
courts, “nor does it fall short of the spirit, purpose, or the object of the
Bill of Rights.”
Again, in SA Bank of Athens Ltd v May van Zyl [2006] 1 All
SA 118 (SCA) the learned judge held…, that:
“I am, however, unpersuaded that parate execution is per se
unconstitutional or offensive to public policy.”
Thus, in South Africa, the cases of Chief Lesapo v
North West Agricultural Bank and Anor 2000 (1) SA 409 (CC) and Findevco (Pty) Ltd v Faceformat SA (Pty) Ltd 2001 (1) SA 251
(NPD) have not been followed in a number of cases.
Section 69 of the Constitution provides as follows:
“69 Right to a fair
hearing
(1) Every person accused of an offence has the right to a
fair and public trial within a reasonable time before an independent and
impartial court.
(2) In the determination of civil rights and obligations,
every person has a right to a fair, speedy and public hearing within a
reasonable time before an independent and impartial court, tribunal or other
forum established by law.
(3) Every person has the right of access to the courts, or
to some other tribunal or forum established by law for the resolution of any
dispute.
(4) Every person has a right, at their own expense, to
choose and be represented by a legal practitioner before any court, tribunal or
forum.”
As I have already stated, this provision, although worded
differently, bears the same import as section 34 of the South African
Constitution. I see nothing in the wording of both these provisions which
explicitly, or by necessary implication, renders parate executie
unconstitutional.
A party that is aggrieved by the manner in which
parate executie has been carried out by the creditor has the right to
approach the courts to complain about the manner in which he/she has been
prejudiced by the application of parate executie. The debtor's right of
access to the courts remains intact and he is free to exercise it.
This approach was highlighted in the case of Osry v Hirsch,
Loubser & Co Ltd 1922 CPD 531…, where it is stated:
“It is, however, open to the debtor to seek the protection
of the court if, upon any just ground, he can show that, in carrying out the
agreement and effecting a sale, the creditor has acted in a manner which has
prejudiced him in his rights.”
Similarly, in the case Changa v Standard Finance Ltd 1990
(2) ZLR 412 (SC), the court held:
“An agreement for the delivery of movables by a debtor to a
creditor and their sale by the latter by means of parate execution is valid and
binding subject to the qualification that the creditor is not entitled to act
in a manner so as to prejudice the debtor in his rights.”
In Nyamukusa v Agricultural Finance Corporation SC174-94,
this court adopted the same approach and concluded that parate executie
was both constitutional and lawful.
I respectfully associate myself with the authorities that
have held that parate executie is not only lawful but constitutional for
the simple reason that the debtor's right of access to the courts is not taken
away by parate executie. The debtor has unlimited access to the courts to
complain about the manner in which the creditor has performed the contract. To
allow the debtor to escape liability freely and openly undertaken on the basis
of parate executie smacks of duplicity and strikes at the heart of the
time honoured principle of the sanctity of the freedom to contract….,.
In the result, it is declared that parate executie is
part of our common law and that it does not contravene section 69(3) of
the Constitution as being contrary to public policy in the context of the right
of access to the courts.
There shall be no order as to costs.