IntroductionThis judgment is in respect of two matters, HC2128/21 and HC2166/21. The two matters were heard together because the substance of their complaints is the same.Both matters were brought by way of application. HC2128/21 was instituted as an urgent court application while HC2166/21 was brought as an urgent chamber application.Both ...
Introduction
This judgment is in respect of two matters, HC2128/21 and HC2166/21. The two matters were heard together because the substance of their complaints is the same.
Both matters were brought by way of application. HC2128/21 was instituted as an urgent court application while HC2166/21 was brought as an urgent chamber application.
Both applications are opposed by some of the respondents.
Opposing papers, answering affidavits, and heads of argument were filed following a case management meeting with the parties representatives at which the dates for filing the papers were set by consent.
In case no. HC2128/21 the applicant, a legal practitioner and director of the Zimbabwe Human Rights NGO Forum, cited the Minister of Justice, Legal and Parliamentary Affairs, and all the judges of the Constitutional Court and Supreme Court as well as some of the judges of the High Court, on the basis that they are acting judges of the Supreme Court or have been called upon to act as such.
The judges were cited in official capacities.
The Judicial Service Commission (JSC) was joined in the proceedings, at its instance, at the case management conference.
In HC2166/21 the respondents cited are the Judicial Service Commission (JSC), the Chief Justice of Zimbabwe, Honourable Luke Malaba N.O. and the Attorney General N.O. The applicants in that case are Young Lawyers Association of Zimbabwe and Frederick Charles Moses Mutanda, a liberation war veteran.
Background
On 7 May 2021, the Constitution of Zimbabwe Amendment (No.2) Act 2021 became law after being assented to by the President. The contentious aspects of the Amendment Act which are the subject of the instant applications are found in its section 13.
That section repealed section 186 of the Constitution 2013 and substituted it with a new section 186.
Upon gathering that section 186 of the Constitution, introduced by the Amendment, would apply to the second to eighteenth respondents (Luke Malaba, Elizabeth Gwaunza, Paddington Garwe, Rita Makarau, Anne-Mary Gowora, Ben Hlatshwayo, Bharat Patel, Antonia Guvava, Susan Mavangira, Chinembiri Energy Bhunu, Tendai Uchena, Nicholas Mathonsi, Charles Hungwe, Felistus Chatukuta, Alfas Chitakunye, Samuel Kudya and Lavender Makoni) the applicants instituted the two applications. The applicant in Case No. HC2128/21 seeks the following relief:
“IT IS DECLARED THAT:
1. In accordance with provisions of sections 186(1)(a) and 186(2) (of the Constitution of Zimbabwe 2013) in their original form and notwithstanding provisions of Constitutional Amendment Number 2, second to eighteenth respondents hold office they reach the age of seventy years, whereupon they must, by operation of law, retire.
2.The attempt to subvert the position encapsulated in the "original" section 186(1)(a) and 186(2) of the Constitution of Zimbabwe 2013 is contrary to law and therefore in breach of applicant's right to the protection of the law as set out in section 56(1) of the Constitution of Zimbabwe 2013.
IT IS CONSEQUENTLY ORDERED THAT:
3. LUKE MALABA, must or did, at midnight on 15 May 2021, cease to hold the office of CHIEF JUSTICE OF ZIMBABWE.
4. Any action, conduct, or deed of LUKE MALABA post the 15th of May 2021, purportedly as CHIEF JUSTICE OF ZIMBABWE, is null and void and of no effect.
5. ln accordance with the provisions of section 181 of the Constitution 2013, with effect from midnight on the 15th of May 2021, ELIZABETH GWAUNZA became/becomes the ACTING CHIEF JUSTICE OF ZIMBABWE until such a time as a substantive CHIEF JUSTICE OF ZIMBABWE is appointed.
6. In accordance with the provisions of section 181 of the Constitution 2013, with effect from midnight on the 15th of May 2021, PADDINGTON GARWE became/becomes the ACTING DEPUTY CHIEF JUSTICE OF ZIMBABWE until such a time as a substantive DEPUTY CHIEF JUSTICE OF ZIMBABWE is appointed.
7.There shall be no order as to costs."
During argument, counsel for the applicant abandoned the relief sought in paragraph 6 of the draft order and moved that the draft be amended accordingly.
We point out, that, notwithstanding the statement suggesting that what is being sought in paragraphs 3-7 of the draft order is consequential relief, the relief is clearly in the form of a declaration.
The second to eighteenth respondents did not file opposing papers.
They will therefore be taken not to have opposed the application: see Prosser & 35 Others v Ziscosteel Company Ltd HH201-93 and Panganai and 20 Others v Kadir & Sons (Pvt) Ltd HH26-95.
We do not accept the submission by their counsel that they oppose the application without filing opposing papers. This is because the directions issued on 12 May 2021 required the respondents to file opposing papers if they were opposing the application. Their grounds of opposition would have to be contained in the opposing affidavits.
ln Case No. HC2166/21 the applicant sought declaratory relief as follows:
“IT IS DECLARED THAT:
1. The first respondent (Judicial Service Commission) in failing to activate the provisions of section 180 of the Constitution of Zimbabwe Amendment (No.20) Act 2013 and/or the provisions of section 180 of the Constitution of Zimbabwe as amended by Constitution of Zimbabwe Amendment (No.2) Act 2021 (No.2 of 2021) diligently and without delay violated section 324 of the Constitution of Zimbabwe as amended.
2. The second respondent (Chief Justice Luke Malaba) cannot, by virtue of section 328(7) of the Constitution of Zimbabwe, as amended, benefit from the term limit extension as introduced by an amendment of section 186 by the Constitution of Zimbabwe Amendment (No.2) Act 2021.
3. As a consequence of 2 above, the second respondent shall vacate office as the Chief Justice of Zimbabwe on (sic) midnight of 15 May 2021.
4. Any action, conduct, act, or deed of second respondent post the 15th of May 2021, purportedly as Chief Justice of Zimbabwe, is null and void and of no force or effect.
5. Any attempt to continue in office by second Respondent as Chief Justice of Zimbabwe and/or any continuation in office by second respondent, purportedly as Chief Justice of Zimbabwe, violates applicants right of access to a court of law established by law and applicants right to protection of the law in accordance with section 69(4) and section 56(1) of the Constitution 2013 as amended.
6. The second respondent, in any event, can no longer be a judge of the Constitutional Court for more than 15 years in violation of section 186(1) of the Constitution 2013 as amended.
7. ln the alternative, section 14 of the Constitution of Zimbabwe Amendment (No.2) Act 2021 (No.2 of 2021) is invalid for violating section 56(3) of the Constitution 2013 and is accordingly struck down.
8. There shall be no order as to costs."
The relief set out in the first paragraph was not persisted with as it was predicated upon a misreading of the Constitutional provisions pertaining to the appointment of a Chief Justice in Zimbabwe.
The applicants were under the mistaken belief that the first respondent, the Judicial Service Commission (JSC) had the mandate to call for candidates to participate in an interview.
Section 180 of the Constitution provides that the Chief Justice is appointed by the President after consultation with the Judicial Service Commission (JSC).
The relief sought in paragraphs 2, 3, 4 and 5 is the same one being sought by the applicant in HC2128/21 save for the reference to section 69(4) of the Constitution.
The relief sought in paragraph 6 of the draft order was abandoned during argument. Also, the applicant did not make any submissions in support of the alternative relief being sought in paragraph 7 of the draft order.
We take it that this relief, seeking the declaration of invalidity in respect of section 13 (which was incorrectly referred to as section 14) of the Constitution of Zimbabwe Amendment (No.2) Act 2021, is not being persisted with.
Preliminarv Issues and Obiections
The parties raised preliminary issues and objections:
The first issue pertained to the recusation of the judges sitting in this matter. We dismissed the application and advised that the full reasons would be contained in the final judgment. Brief reasons were given in the ex tempore judgment that we delivered on 15 May 2021....,.
Application for Recusal
The application on behalf of the 2nd to 19th respondents pertained only to ZHOU J.
As already noted, the 2nd to 18th respondents have not opposed the applications. The grounds advanced are that the judge is conflicted in that he was a Commissioner of the Judicial Service Commission (JSC) for a period of six (6) years, and, secondly, that, he participated in the interviews for the selection of Constitutional Court judges which were held in September 2020.
There was also the submission, that, the entire High Court bench, or, alternatively, the judges who constitute the panel in casu would be biased.
An application for the recusal of a member of a court or tribunal, based on interest, has its foundations in the principle of natural justice known as nemo judex in sua causa. The test for bias is an objective one. The applicant must show a reasonable possibility of bias.
ln the case of Bernert v Absa Bank Ltd 2011 (3) SALR 92 the Constitutional Court of South Africa held, that, in the context of an allegation of judicial bias the "double requirement of reasonableness" must be satisfied, that both the person who apprehends bias and the apprehension itself must be reasonable.
When one considers that there is a presumption of impartiality, the need for genuine evidence or facts upon which the allegations of bias are founded is enjoined.
On the other hand, it is understood, that, an application for recusal of a judge necessarily places the party making it, particularly the legal practitioner, in an unenviable position. For this reason, courts must not be over-sensitive to such an application being made for their recusal as the rules of natural justice are an important feature of the right to a fair hearing.
ZHOU J, having left the Judicial Service Commission (JSC) in February 2020, a period of about 15 months has passed. The matters in this case do not arise from what happened up to mid-February 2020. Counsel for the second to nineteenth respondents referred to a resolution by which the deponent to the 19th respondent's (JSC) affidavit was authorized to act. He submitted that the resolution was made during the period prior to February 2020, and that some of the applicants had challenged the authority of the Secretary of the JSC.
The resolution speaks for itself, and no evidence outside it or pertaining to how it came into existence was debated in this case. The challenge pertained to whether the Secretary had been authorized by the Judicial Service Commission (JSC) to apply for its joinder and to defend the applications. No interest arising out of previous membership of the JSC has been shown which would suggest a reasonable possibility of bias.
The issue of the interviews for appointment to the Constitutional Court does not arise in this case. The provisions which are the subject matter of these applications introduce a new regime for appointment of sitting judges to the Constitutional Court and Supreme Court. No interest can be imputed arising out of the interviews which would have a bearing on the present applications.
The move for the recusation of the entire panel of judges was predicted upon two grounds as advanced by counsel for the first respondent and the Attorney General:
(i) The first ground was that the amendments which were introduced by section 186 of the Constitution of Zimbabwe Amendment (No.2) Act 2021 disadvantage High Court judges because their retirement age limit was not extended to 75 years.
The submission was that the High Court should not therefore hear the instant applications.
This startling submission, which was directed at all the High Court judges, including those who are not on this, panel, assumes that extension of working age to 75 years is a benefit.
That is a misapprehension not based on an interview of any of the High Court judges.
(ii) The additional ground was that the judges sitting in this matter were constituted by the Judge President who is a commissioner of the Judicial Service Commission, and would be conflicted.
The allocation of cases to judges is an administrative function which judges have no control over. The involvement of the office of the Judge President is purely in the discharge of his administrative function. The insinuation by counsel for the first respondent, that the judges may have been picked for some other improper purpose in this matter is not based on evidence, and is a reckless submission by a legal practitioner who is an officer of this court.
The suggestion that the panel of judges was biased because they truncated the deadline for filing papers is unsound. The dates were discussed and agreed upon, having regard to the basis of the urgency, which was that the second respondent was turning 70 years old on 15 May 2021.
The court has inherent power to control its processes and procedures.
Secondly, the dates were established with the involvement and consent of those who instructed counsel for the first respondent. The directions issued in respect of the filing of papers could therefore not be evidence of bias or an interest in the matter as suggested.
For these reasons, we dismissed the application for recusal of the judges.