On 12 December 2011, the applicant filed an application in this court under Case No. HC12336/11 seeking a prohibitory interdict against the respondents.The remedy sought was to prevent the respondents from moving or accepting any motion from any member of the House of Assembly to dismiss the applicant without the ...
On 12 December 2011, the applicant filed an application in this court under Case No. HC12336/11 seeking a prohibitory interdict against the respondents.
The remedy sought was to prevent the respondents from moving or accepting any motion from any member of the House of Assembly to dismiss the applicant without the matter of his dismissal first being brought before the Committee on Standing Rules and Orders (CSRO) or its sub-committee or other independent and impartial disciplinary authority.
On realising that, despite having filed the aforesaid application, the respondents were determined to proceed with the motion to have him dismissed, the applicant filed the instant urgent application whose amended interim relief is couched in the following terms:-
“1. Pending the determination of the Court Application under Case Number HC12336/11 the respondents are prohibited, restricted, and interdicted from continuing to debate and voting on any motion to dismiss the applicant.
2. Pending the determination of the Court Application under Case Number HC12336/11, any debate, voting, or decision on the motion to dismiss the applicant, with or without amendments, be and is hereby declared null and void ab initio and therefore of no force and effect.”...,.
ON MERITS
Having disposed of the preliminary points raised, I wish to focus on the substantive issues raised by the parties in this application.
The fundamental guiding principle in this case was eloquently summed up by Mr Shepherd Mushonga, the fourth respondent, when he put it in the following words:-
“The principle of separation of powers is he hallmark of a constitutional democracy which entails that the three (3) arms of State, namely, Parliament, the Executive, and the Judiciary are separate and independent of each other in so far as the exercise of their powers is concerned.
The Constitution vests Parliament with the powers to regulate its own affairs. Parliament exercise judicial powers in respect of certain matters that fall within its domain to the exclusion of the Courts.”…,.
I applaud the sentiments and indeed associate myself with same.
Be that as it may, one needs to appreciate the often overlapping function that characterize the legislature, the Executive, and the Judiciary.
Whilst these three arms of Government must enjoy their independence, they do not exist outside each other. They play a complimentary role.
The sovereignty of Parliament, or, to put it simply, the power enjoyed by Parliament is not absolute, for if it were so the citizens would be extremely vulnerable. It would mean that Parliament would do virtually everything it desired, including violating its own Rules and Regulations, to the detriment of its citizen with impunity. Such a scenario, in my view, would not be tenable. There must be some control mechanism through which Parliament is to be held accountable by disgruntled citizens: see The British Constitution by J.S. DUGDALE, M.A, published by Bath James Brodie Ltd, London 1962…,.
From my reading of the applicant's urgent chamber application, and the notices of opposition filed by the respondents, I discern the following issues to be pertinent and decisive in this matter;
(a)...,.
(b)...,.
(c) Whether or not the House of Assembly, through the active participation of the respondents, used illegal means to initiate the dismissal of the applicant.
(d) What is the correct procedure which should be used to initiate the dismissal of the applicant?
(e) Whether or not the amended motion proposed on 14 December 2011, and eventually adopted by the House of Assembly, cures the defects which are of concern to the applicant....,.
(c) and (d) The correct procedure in initiating the dismissal of the applicant
I intend to deal with issues (c) and (d) together.
To fully understand the fear that gripped the applicant in this case, one needs to understand the motion that was tabled for debate in Parliament.
Following numerous allegations which touched on the alleged shortcomings of the applicant in the execution of his duties as the Clerk of Parliament the motion that eventually stood, in the name of the third respondent, was worded as follows:
“Now, therefore, this House places on record its disapproval of the untoward behaviour and actions exhibited by the Clerk of Parliament, Mr Austin Zvoma, and further resolves to invoke provisions of 48(2) of the Constitution of Zimbabwe to dismiss Mr Austin Zvoma from the service of Parliament forthwith through a secret ballot process – Hon Tshuma”…,.
The wording of the motion shows the inherent dangers of allowing the respondents, and other Parliamentarians, to determine the fate of the applicant.
The motion, as it stood, had no provision for proper disciplinary proceedings, yet, the right to be heard, even for a murderer, is one of the core values of the rules of natural justice.
As already alluded to elsewhere in this judgment, section 48(1) of the Constitution of this country has vested the power to appoint a Clerk of Parliament (the applicant) not to every Member of Parliament but to a special organ of Parliament called the Committee on Standing Rules and Orders (CSRO) which organ is tasked to supervise not only the applicant but also other staff members of Parliament who are appointed in terms of section 48(3) of the Constitution.
Section 48(4) of the Constitution then gives Parliament the power to formulate terms or conditions of service for the staff members. The officers of Parliament (Terms of Service) Regulations 1977 were approved by Parliament in terms of this section. These Rules cover, in sufficient detail, the appointment procedure, conditions of service including the procedure to be adopted in the termination of the employee's service should the need arise.
It is pertinent to note that in terms of Part 1 of the Officers of Parliament (Terms of Service) Regulations, 1977 it is stated that “the staff of Parliament shall in addition to the Clerk of Parliament, consist of such officers…,.”
The Regulations go on to identify these other officers or employees as specified in the Regulations.
I do not read this section to exclude but to include the person in the position of the applicant.
A simple perusal of the Regulations concerned clearly show that the administration of the staff members of Parliament, as well as their appointments, is vested in the Committee on Standing Rules and Orders (CSRO).
The Rules, in so far as they deal with the disciplinary proceedings of the staff members of Parliament, are clear and they do not require any complicated interpretation.
The Speaker of the House of Assembly (first respondent) is firmly empowered by the Rules to initiate any enquiry against any of the staff members of Parliament who incidentally include the applicant.
There does not seem, in my view, to be any room for the Committee on Standing Rules and Orders (CSRO), through the Speaker of the House of Assembly, to relinguish or to delegate its administrative functions to the ordinary members of Parliament. This appears to me to have been done for obvious reasons. Ordinary members of Parliament do not appoint the staff of Parliament and the applicant and may not have the capacity or ability to supervise the employees in their day to day activities.
There seems to be greater wisdom in dealing with disciplinary proceedings in terms of the regulations of Parliament. That procedure comments itself in that before anyone is condemned, the individual is given an opportunity to explain his conduct in line with the much cherished and time honoured principle of the audi alteram partem.
It occurs to me that it is only when the Committee on Standing Rules and Orders (CSRO) has conducted a proper inquiry against the applicant, and the applicant found to be guilty, that the Speaker can then advise Parliament in terms of section 48(2) of the Constitution. It is only then that the House of Assembly can then resolve, by the affirmative votes of more than one-half of its total membership, to have the applicant removed.
Anything short of this would be illegal and any finding in support of the approach taken by Parliament would amount to this Court sanctioning Parliament to act in breach of its own Regulations.
This Court did not make the Parliament regulations in question. It was Parliament, in its own wisdom, which made them and the members of Parliament must be seen to be complying with such Regulations.
Having said this, I have not the slightest hesitation in concluding that, Parliament, in allowing the motion, debating on same, and voting on it, clearly overstepped its authority. This is so because the voting that is referred to in section 48(2) of the Constitution must be the end result of due process in the removal or dismissal of the applicant.
(e) Has the amended motion cured the defect alluded to by the applicant?
During argument, it was suggested to me by the two counsels representing the respondents that the seemingly rough edges of the motion that triggered debate in Parliament…, was ultimately refined by the amendment that was proposed by the fourth respondent and subsequently adopted by the House thereby removing the defect complained of by the applicant.
I am not persuaded by this argument.
It completely misses one fundamental issue in these proceedings. The issue is that the respondents or Parliament, as a body, did not have the power to do what it did.
Even if I were to assume, for a moment, that the respondents, and Parliament in general, had such powers, one needs to look at the resolution that was eventually passed, with particular regard to the terms of reference of the proposed five member committee, to appreciate the fallacy of the position taken by the respondents.
The House concluded by proposing the appointment of a special five (5) member committee whose terms of reference is as follows:-
“(a) The special five member committee is to make recommendations to the full House on its findings whether:
(i) To terminate immediately the Clerk of Parliament's contract of employment.
(ii) To suspend without pay for a period of time.
(iii) To demote and/or reprimand the Clerk of Parliament…,.”
The terms of reference, on their own, make it impossible for the committee of five (5) to approach the inquiry with an open or impartial mind. Their mandate is simply to find the applicant guilty at all cost and consider the nature of punishment to be meted out against him. Such an approach clearly represents kangaroo proceedings which must not be allowed to happen within the precincts of the supreme law making body of this country – Parliament.
If allowed to happen, this would be a clear violation of the applicant's constitutionally recognised right to be afforded a fair hearing before an impartial body. The applicant's apprehension is clearly justified and Parliament must not be allowed to stampede on his rights with impunity.