On 17 February 2011, a consent
order was issued by this court in HC1151/11 in the following terms:“IT IS ORDERED:That first respondent be and is
hereby ordered to reconsider applicant's husband application (sic) for an
extension of his Provisional Restriction Notice for a further 90 days.That in the event of the first
respondent declining ...
On 17 February 2011, a consent
order was issued by this court in HC1151/11 in the following terms:
“IT IS ORDERED:
That first respondent be and is
hereby ordered to reconsider applicant's husband application (sic) for an
extension of his Provisional Restriction Notice for a further 90 days.
That in the event of the first
respondent declining to extend the applicant's husband permit (sic), and
applicant's husband appealing to the Second Respondent, First Respondent be and
is hereby ordered to release the applicant's husband from Harare Remand Prison
until the determination of applicant's
husband appeal (sic) by the Second Respondents.
That the Notice to Prohibited
Person be suspended.
That each party pays its own
costs.”
The applicant has now filed this
urgent chamber application and contends that the first respondent has complied
with the first part of the consent order and has since declined to extend her
husband's permit. Her husband has appealed against the decision. Despite such
appeal being made, she contends the first respondent has refused to release her
husband. She contends that in terms of the consent order quoted above, and in
view of the first respondent's refusal to release her husband, this court
should now order the first respondent to so release her husband.
The applicant thus seeks a
Provisional Order in the following terms:
“TERMS OF FINAL ORDER SOUGHT
That you show cause why a final
order should not be made in the following terms:-
1. That First Respondent be
committed to prison for ninety days for his contempt of this honourable Court
particularly his defiance and contempt of this Honourable Court's Consent Order
in Case No. HC1151/11 granted on 16 February 2011. (sic)
2. That the first respondent pays
the costs of this application on an attorney/client scale. (sic)
INTERIM RELIEF GRANTED
Pending the final determination
of this matter, the applicant is granted the following relief:-
(a) That within twelve hours of
the service of this Order upon the First Respondent to show cause why a Final
Order should not be made in terms of the Final Order sought herein.
(i) First Respondent is ordered
to release the applicant's husband, Emmanuel Chimaobi Udoh, from Harare Remand
Prison immediately. (sic)
(ii) That this order shall be
effected on First Respondent by the applicant's legal practitioners by service
on the Director of the Civil Division of the Attorney-General's Office or on
the first respondent personally.” (sic)
Counsel for the applicant submitted that the consent order creates no
confusion and that its terms were consciously agreed to by the parties who
anticipated that in the event of the first respondent declining the applicant's
husband's application, there may be filed an appeal against such a decision. He
submitted that the parties agreed that in the event of such appeal being filed,
the first respondent would release the applicant's husband from Harare Remand
Prison pending the determination of the appeal. Furthermore, he submitted, it
was agreed that the “Notice To Prohibited Person”, in terms of which the
applicant's husband was arrested and incarcerated, was suspended. Counsel for
the applicant further submitted that
subsequent to the consent order being granted, on 16 February 2011, the
applicant submitted an application to the first respondent on 17 February 2011.
On 21 February 2011 the first respondent wrote the letter…., in which he
referred to “your recent application for a residence permit…,” and advised that
the application “has been refused.” He submitted that this application was made
in terms of the consent order; that when it was declined and an appeal was
made, it became incumbent upon the first respondent to release the applicant's
husband as anticipated by the terms of the consent order. He also submitted
that the first respondent had no justification at all for not releasing the
applicant's husband in the circumstances and was therefore in contempt of
court. The Provisional Order sought must therefore be granted.
In opposing this application, the
first respondent contends, in one breath, that the Consent Order has been
“religiously complied with”. He contends that the Consent Order compelled him
to reconsider the applicant's husband's application for extension of his Provisional
Restriction Notice. However, since there was an application of “spousal
residence permit” that was already lodged and pending, it was only proper that
that application be finalised. This was done, and on the basis of the evidence
gathered by the first respondent's officials in Gweru, the application was
declined as it had no merit. The applicant's husband was advised accordingly.
It is stated, in the opposing affidavit, that it is denied that the first
respondent failed to comply with the Consent Order as he, in fact, went a step
further by concluding the application for spousal residence permit extension.
This, it is stated, is an application that had been pending since 2007 and had
not been finalised because the applicant and her husband failed to avail
themselves for the process to be concluded. Efforts to locate the applicant's
husband at the given address in Harare had proved futile. The applicant's husband
was then only arrested in KweKwe in November 2010, and, by then, he had, by
operation of law, become a prohibited person and he was notified of this status
in terms of section 14(1)(i) of the Immigration Act. This notification was held
in abeyance by the Consent Order but after the application for residence permit
extension failed, it came into operation as the applicant's husband is a
prohibited person by virtue of operation of law. It is for these reasons, it
was contended, that he remains in detention….,.
At the hearing, counsel for the
respondents submitted that as the
first part of the Consent Order requires the first respondent to reconsider the
applicant's husband's application for extension of the Provisional Restriction
Notice, such reconsideration could only be done if an application had been made
with the first respondent. He submitted that no such application was made. He
submitted that the second part of the Order does not refer to any Provisional
Restriction Notice but to a permit and that as the first respondent issues
various types of permits, it is not clear as to what permit the second part of
the Order is referring to. As no application was made for a Provisional
Restriction Order, and, consequently, no such application was declined by the
first respondent, the provisions of the Consent Order were thus not triggered
into operation. It was submitted that the application which the first
respondent considered and determined was an application for a residence permit
and that such application was not made pursuant to the Consent Order. It (the
application), had been made in 2007 and the first respondent's letter dated 21
February 2011 was in response to the 2007 application. It was submitted that in
the circumstances, the Consent Order places the first respondent under no
obligation to release the applicant for these stated reasons.
A perusal of the papers placed
before the court shows the following sequence of events. On 17 February 2011
the Consent Order already quoted above was issued. On 21 February 2011 the
Principal Director of Immigration wrote a letter to the applicant's husband. It
reads:-
“I refer to your recent
application for a Residence Permit to the Principal Director.
I regret to advise you that your
application has been refused. In terms of s19(2)b of the Immigration
Regulations 1998. (sic).
Please bring this notification
letter together with your passport to the nearest Immigration Office to
finalise on departure arrangements.”
On
22 February 2011, the applicant's legal practitioner wrote to the respondents
legal practitioners in the following terms:-
“We refer to the above matter in
which an order was granted by Consent on 16 February 2011.
We would have thought as
clearly expressed by the Honourable Justice BHUNU, now that the file for Mr
Emmanuel Udoh has been found he would by now have been released. The
application was for him to be released immediately and not whenever your
client wants.
It is a week since the order was
granted, and, as expressed on the phone yesterday, there is no legal basis to
continue detaining Emmanuel Udoh at all.
The basis upon which he was
purportedly detained at Harare Central Remand Prison was the Notice to
Prohibited Person which was suspended by consent.
The detainee should have been released
immediately on his wife's application for a Permit on a Provisional
Restriction Notice whilst the Department of Immigration was processing his
permit and we understand this application was done on 17 February 2011.
It cannot surely take a
week to process our client's Provisional Restriction Notice. Unless, therefore,
our client is released on a Provisional Restriction Notice by close of business
on 22 February 2011 we have been instructed to proceed with an Urgent
Application for contempt of Court”. (sic)
On
23 February 2011, the respondents' legal practitioner responded to the
applicant's legal practitioner as follows:-
“We regret to say your
interpretation of the consent order is materially different from ours.
Our understanding of the order is
that once the file was located (even though our client insists it never went
missing as you allege or at all) it had to process your application. As it
were, our client has processed yours application in terms of the Consent
(Order) and found it devoid of ment (sic) (merit) and dismissed it. In the
circumstances, our client is convinced that he has religiously complied with
the Consent Order and is not in contempt as you allege or at all. We hope this
clears things up.”
On 24 February 2011, the
applicant's legal practitioner wrote a letter to the second respondents on
behalf of the applicant's husband, appealing to them to exercise their
discretion in the applicant's husbands' favour and order the Department of
Immigration to grant him an extension of his permit on the grounds stated in
the letter. They also wrote a letter to the respondent's legal practitioners on
1 March 2011 and stated the following:
“We refer to the above matter and
advise that your client the first respondent declined to extend our client's permit.
Our client has since appealed to
the second respondent. We enclose copy of our client's letter of appeal a copy
of which was served on both first and second respondents. Since our client has
appealed against first respondent's refusal to extend the permit kindly
instruct your client to immediately release our client as ordered in
para 2 of the Consent Order. (sic).
We thought your client would by
now have complied with para 2 of the Order. Since it was served early on
28 February 2011. (sic) Unless your client immediately releases our client our
instructions are to proceed with an application for contempt. (sic)
There certainly can be no different interpretation of paragraphs 2 of the Order
as that seems clear.” (sic).
The
first respondent appears to be rather equivocal or ambiguous in his stance. In
one breath it is claimed that the order, or the terms thereof, ought not to
have been agreed to as it is not in tandem with how the first respondent's
affairs are run. In another/the next breath it is contended that the first part
or the first paragraph of the order was consciously and properly agreed to, as
it is in accord with Immigration Laws. In yet the next breath it is claimed
that the first respondent has religiously complied with the Consent Order.
Against this ambiguousness is the fact that in his letter of 21 February 2011,
the first respondent referred to the applicant's husband's “recent application.”
He did not refer to an application made in 2007 - which he now seeks to portray
as the application which he considered and determined. Furthermore, in that
letter, the first respondent advised the applicant's husband to bring the
letter together with his passport to the nearest Immigration Office “to
finalise on departure arrangements.” This latter part of the letter would seem
to indicate a number of possibilities. One would be that the first respondent
did not anticipate an appeal by the applicant's husband. Such a stance,
however, would be contrary to the (agreed) terms of the Consent Order in terms
of which an appeal was in fact anticipated. Another possibility would be that,
to the first respondent, it did not matter whether the applicant's husband
appealed against the determination made by him. He had no interest in the
second part of the Consent Order which anticipated an appeal. It is highly
improbable, in my view that by referring to a recent application in his letter
of 21 February 2011 the first respondent meant an application made four years
earlier in 2007. In fact, the first respondent's legal practitioner's letter of
23 February 2011 clearly stated that the applicant's husband's application was
processed in terms of the Consent Order, was found devoid of merit and was
dismissed. The letter stated that the first respondent is convinced that he has
religiously complied with the Consent Order and that he is not in contempt of
court as alleged or at all. No mention is made of any appeal having been made
by the applicant's husband.
When mention was made, in the
letter of 1 March 2011, of the applicant's husband's appeal, the letter was not
responded to. The aspect of the consequence of such appeal in terms of the
Consent Order thus appears to have been deliberately avoided by the first
respondent, or his legal practitioners, in any correspondence they exchanged
with the applicant's husband's legal practitioners. The stances which the first
respondent has now placed before the court, especially regarding the second
part of the Consent Order in which reference is made, inter alia, to an appeal,
was never expressed to the applicant's husband or his legal practitioner before
this hearing. What is apparent from the correspondence is that the first
respondent was keen to deport him immediately upon the determination of his
application.
For the above reasons, I find
persuasive counsel for the applicant's submission that the parties have always
been clear as to what application the first respondent was to reconsider and
determine. Furthermore, that they have always been clear that the appeal
referred to, or anticipated, in the first part of the Consent Order is an
appeal against the determination made in terms of the first part of the Consent
Order.
In the next breath, the
submission was made by counsel for the respondents that when the terms of the
Consent Order were agreed upon, he, (counsel for the respondents) was under a
misapprehension as to how the first respondent conducted its business or
operations. It was only at a later stage that he was made to realise that the
consent order, or the terms thereof, ought not to have been agreed to by or on
behalf of the first respondent. He has since been given instructions to apply
for the consent order to be set aside…..,.
Counsel for the respondents went
to great lengths addressing the court on the reasons why or how the Consent Order
in HC1151/11 was granted in the terms in which it is phrased. He also addressed
the court at length about the undesirability of the terms of the Consent Order
to the first respondent. Those issues are certainly not before this court. What
is before this court is a consent order issued by this court more than a month
ago in HC1151/11. The relief now sought before this court arises from the said Consent
Order.
Whatever intentions the first
respondent has about it, the Consent Order is extant.
It follows, therefore, in my
view, that the first respondent, having complied with the first part of the Consent
Order, as he confirms that he did, and the applicant's husband having appealed
against the determination made in terms thereof, the first respondent must now,
in compliance with the second part or paragraph of the Order, release the
applicant's husband from Harare Remand Prison pending the determination of his
appeal. Subparagraph (i) of paragraph (a) of the interim relief must therefore
succeed….,.
For the above reasons, an Order was issued, on
29 March 2011, in which the relief granted was to order the immediate release
of the applicant's husband from Harare Remand Prison by the first respondent
with the first respondent being ordered to pay the applicant's costs.