REPORTABLE (76)
Judgment No
SC 75/05
Civil Application No
16/05
ROY
LESLIE BENNETT
v (1) EMMERSON
DAMBUDZO MNANGAGWA (in his capacity as the SPEAKER OF THE
PARLIAMENT OF ZIMBABWE) (2) PAUL
MANGWANA (3) JOYCE
MUJURU (4) CHIEF MANGWENDE (5) WELSHMAN NCUBE (6)
TENDAI BITI (7) THE
ATTORNEY-GENERAL
SUPREME COURT OF
ZIMBABWE
CHIDYAUSIKU CJ,
SANDURA JA, CHEDA JA, MALABA JA & GWAUNZA JA
HARARE, MAY 26, 2005
& MARCH 9, 2006
J. J. Gauntlett,
SC., with him A.P. de Bourbon SC, for the applicant
S.J.Chihambakwe,
with him J Mhlanga, for the first, second, third and
fourth respondents
R. Gatsi, for
the seventh respondent (intervener)
CHIDYAUSIKU CJ: This application is brought in terms of s 24
of the Constitution of Zimbabwe. Section 24 of the Constitution
provides that any person who alleges that the Declaration of Rights
has been, is being, or is likely to be, contravened in relation
to
him may apply to the Supreme Court for redress. The applicant, who
was at the relevant time a Member of Parliament, assaulted
Mr Patrick
Chinamasa, MP, Minister of Justice, Legal and Parliamentary Affairs,
and Leader of the House (hereinafter referred to
as Chinamasa).
The assault took place in Parliament while it was in session. He
was charged with, and found guilty of,
contempt of Parliament. He
was sentenced, by Parliament, to fifteen months imprisonment of
which three months imprisonment
was suspended on certain
conditions.
The applicant
challenges that conviction and punishment on the following four
grounds -
1. The proceedings violated his constitutional and fundamental right
to a fair hearing by an independent and impartial court or other
adjudicating body protected by s 18(1),(2) and (9) of the
Constitution of Zimbabwe (the Constitution).
2. He was discriminated
against on grounds of race and political opinion contrary to the
provisions of s 23 of the Constitution.
3. The punishment
imposed on him was inhuman or degrading and violated his fundamental
right protected under by s 15(1) of the Constitution;
and
4. That s 16 of the
Privileges, Immunities and Powers of Parliament Act [Chapter 2:08]
(the Act), in terms of which Parliament imposed the custodial
punishment on the applicant is, ultra vires the Constitution,
in particular s 49 of the Constitution.
The following are the
facts of the case.
On 18 May 2004 and in
the Parliament of Zimbabwe while Parliament was sitting the applicant
(hereinafter referred to as Bennett)
assaulted Chinamasa while
he was addressing Parliament by felling him to the floor.
Shortly after the
incident, a motion raising the question of privilege on the conduct
of Bennett was moved in Parliament. The
motion was as follows:
Following the
unfortunate events of this afternoon, whereby during a debate on the
adverse report of the Parliamentary Legal Committee
on the Stock
Theft Amendment Bill, Honourable Bennett rose from his seat without
leave of the Chairperson of the House, proceeded
to the table where
the Leader of the House Honourable Chinamasa was addressing the House
and violently shoved him to the ground together
with Honourable
Mutasa who had risen to render assistance to Honourable Chinamasa
thereby assaulting them. I move that a Privileges
Committee be
constituted to investigate the conduct of Honourable Bennett on
allegations of contempt of Parliament as envisaged by
section 21 of
the Privileges, Immunities and Powers of Parliament Act [Chapter
2:08] as read with paragraph 16 of the Schedule.
The motion was carried and a Committee consisting of five Members
of Parliament was appointed to enquire into the matter. The
Parliamentary Committee (hereinafter referred to as the Committee)
consisted of three members of the ruling party ZANU (PF) and two
members of the MDC, the opposition party, and the party to which
Bennett belongs.
The Committee was to conduct an enquiry and make recommendations to
Parliament in accordance with the Act on whether or not the
conduct
of Bennett amounted to contempt of Parliament in terms of s 21 of the
Act.
The Committee decided to conduct its proceedings in an
inquisitorial as opposed to an accusatorial manner. The Committee
first
viewed the video extract of the events of 18 May 2004 and
perused the Hansard of that day. The Committee also
considered the following -
(a) the video clip of the events of 18 May 2004;
(b) the Hansard Report of 13 and 18 May 2004;
(c) the transcript of the Voice of America radio interview of the
Honourable D. Mutasa (Mutasa) on 20 May 2004;
(d) the Parliamentary Debate of 20 May 2004;
(e) the Committee directed that there be presented a full transcript
of the video clip. The transcript was prepared and duly considered
by the Committee;
The Committee was further supplied with and considered the following
documents and video clips
(i) extract from The Standard Newspaper of 23 May 2004
entitled Bennett Speaks Out;
(ii) a bunch of documents on Charlesworth Farm and Delport Farm with
attachments submitted by Bennett;
(iii)a video clip of Zimbabwe Broadcasting Corporation News Bulletins
flighted after 18 May 2004;
(iv) a video clip of a speech by His Excellency The President on 23
June 2003; and
(v) a transcript of The Voice of America radio interview of Mutasa.
As a matter of guidance to itself the Committee decided that it
would seek to establish the following -
(a) whether Bennett did assault Chinamasa and Mutasa;
(b) whether Bennett caused a disturbance in Parliament;
(c) whether Bennett willfully interrupted the orderly conduct of the
business of the House;
(d) if any of the above was established, whether Bennetts conduct
amounted to contempt of Parliament; and
(e) whether there was any defence available to Bennett.
At the commencement of the enquiry Bennett raised a number of legal
objections and made certain submissions, namely -
(i) Bennett indicated that he wished to be represented by a legal
practitioner of his choice and the Committee resolved that Bennett
could be accompanied by his legal representative who could give him
advice and that the legal representative could lead him when
he gave
evidence to the Committee.
(ii) Bennett enquired whether the proceedings were going to be
adversarial or inquisitorial and was advised that the enquiry would
be inquisitorial but the Committee would avail to him all the
evidence received by it, including the transcripts of viva voce
evidence from witnesses.
(iii) Bennett also raised the issue that he was being discriminated
against because he alone was being summoned before the Committee
while both Chinamasa and Mutasa, who conducted themselves in a manner
contemptuous of Parliament, were not being called upon to appear.
The Committee overruled this objection and concluded that there was
no breach of Bennetts constitutional rights.
(iv) Bennett also requested the recusal of the Chairperson of the
Committee on the grounds that he had moved the motion for the
establishment
of the Committee on Privileges on this matter and
therefore had an interest or was biased against him. The Committee
ruled that
no grounds of bias or conflict of interest had been
established to warrant the Chairperson recusing himself from the
proceedings.
(v) Bennett also raised the issue of the stay of the Committees
proceedings pending the finalization of an application he had
filed
with the High Court to review Parliaments decision to appoint the
Committee. This request was turned down.
(vi) Bennett further requested that his wife be in attendance, which
request was granted.
(vii)He further requested that a journalist from Agence France
Press be present and the Committee advised that the journalist
should make application to the Committee, which application was never
made
and the matter fell by the wayside.
The Committee heard oral evidence from three witnesses
Honourable Mutasa MP,(hereinafter referred to as Mutasa) Bennett and
Chinamasa in that order. The evidence of these witnesses was to the
following effect:
Mutasa stated that he
witnessed the incident of 18 May 2004. He saw Bennett move from his
seat and confront Chinamasa after he
appeared to have been offended
by what Chinamasa was saying about him. Bennett assaulted Chinamasa
by violently shoving and pushing
him to the ground. He observed the
Minister of Home Affairs trying to restrain Bennett who intended to
further assault Chinamasa
while he was lying on the floor. At that
stage he kicked Bennett from behind in order to divert his attention
away from Chinamasa
and in the process stop any further assault on
Chinamasa. Bennett tried to assault him, but he dodged by sitting
down and kicking
out at him. At no stage did Bennett connect a blow
on Mutasas body. He alleged he kicked Bennett in defence of the
assault
on Chinamasa. The Committee accepted this evidence. The
Committees acceptance of this evidence is not challenged.
The next witness to
give evidence to the Committee was Bennett. He produced to the
Committee bundles of documents on Charlesworth
Farm and Delport Farm.
He produced these documents in support of his contention that he
underwent trials and tribulations at the
hands of the State and its
agents when his farm Charlesworth in Chimanimani was acquired by the
Government. He also stated that
he was harassed by the State at
Delport Farm in Ruwa.
Bennett stated that
he had not intended to be disrespectful to the House and that the
incident occurred when he reacted to insults
from Chinamasa and the
years of harassment he had endured at the hands of the State. He
admitted pushing, thus assaulting, Chinamasa,
who had provoked him.
In respect of Mutasa
he admitted pushing him in self-defence. Bennett admitted causing a
disturbance in the House, but denied
that he did so willfully.
Bennett also gave evidence of his background and his response to
Chinamasas remarks. His evidence in this regard was summarised
by the Committee as being to the following effect:
i) He did not inherit any farm from his parents or forefathers but
bought them through his own efforts after obtaining certificates
of
no present interest from the State.
ii) He had an
altercation with Chinamasa and Honourable Made at one meeting of the
Portfolio Committee on Lands, Land Reform, Rural
Resources and Water
Development.
iii) He had been
subject(ed) to persistent harassment from the members of the Defence
Forces, State Security, and ruling party operatives
since 2000 when
he stood as a parliamentary candidate for the opposition MDC.
iv) He had taken up the
matter of his harassment with the Speaker and Vice President Msika
but to no avail.
v) He referred the
Committee to the dossiers on Charlesworth and Delport Farms to
sustain his defence of persistent harassment.
vi) He invited the
Committee to view a video clip of a speech by His Excellency the
President (in June 2003), which speech he alleged
His Excellency
incited people to continue to harass Honourable Bennett and his
family.
(vii)Honourable Bennett
showed the Committee clips of News Bulletins shown after the 18th
May 2004 and the demonstrations held against him at Parliament and
elsewhere in the country after this incident.
viii)He was praised and
held with honour by his supporters in Mutare and Kuwadzana after he
assaulted Honourable Chinamasa.
xi) On the day he
assaulted Honourable Chinamasa he had acted on impulse in reaction to
the insults. He felt that the Chairman of
the Committee of the
whole House had not protected him during the time he alleges
Honourable Chinamasa was insulting him.
x) He admitted that he
had not sought the protection of the Chairman before assaulting
Honourable Chinamasa.
xi) He had not
apologised to Honourable Chinamasa or to the Speaker on his conduct
on the 18th May 2004.
The Committee heard evidence from Chinamasa, which it summarised as
follows:
i) That Parliament was an institution where members enjoyed
freedom of expression and this was evidenced by robust debates
including
trading of harsh words and sometimes insults. In
instances where it was perceived that the insults had overstepped the
mark, the
offended member had a right to seek the protection of the
Speaker or Chairperson of a Parliamentary session. The Speaker will
always
protect the offended member in appropriate circumstances.
ii) That as Leader of
the House he expected to be accorded the respect and dignity
befitting his status by all Honourable Members
of Parliament.
iii) That the
utterances he made in relation to Honourable Bennett on 18th
May 2004 were not any different from those made in any democratic
Parliament. He then referred the Committee to the utterances
made
on 13th May 2004, relating to him by Honourable Job
Sikhala in which he was alleged to be a thief. When those words
were uttered by Honourable
Sikhala Honourable Chinamasa sought the
protection of the Speaker and the matter was resolved.
iii) That what he said
on that day was a factual statement of history that land was stolen
from the indigenous people of Zimbabwe
by white colonialists. That
Honourable Bennett like all offsprings (offspring) of colonialists
was a beneficiary of this evil system
of colonialism. That the
government of Zimbabwe was determined to correct the wrongs of the
past through the acquisition of hitherto
white owned land including
Charlesworth Farm owned by Honourable Bennett and redistribute this
land to the black majority. That
such utterances did not amount to
provocating the assault.
iv) That in order to
preserve the dignity of the House if a member felt verbally insulted,
he or she should respond verbally and not
physically.
v) That whites in
Zimbabwe still believe that they were superior to blacks and this
explained why he was assaulted by Honourable Bennett
during a
Parliamentary session notwithstanding that he is Leader of the House
and a Cabinet Minister.
vi) That Honourable
Bennett appeared on a British Broadcasting Corporation interview
boasting over the incident and saying that he
had no apologies to
make. That a rally had been held in Kuwadzana by the MDC with the
participation of Honourable Bennett to celebrate
the assault.
vii) That the MDC
leadership in Parliament had apologised to Honourable Chinamasa for
the unfortunate incident but Bennett had not
apologised even as
Honourable Chinamasa gave evidence to the Committee.
After hearing the evidence the Committee made the following factual
findings:
a) Honourable Chinamasa made robust submissions regarding the
history of colonialism and that Honourable Bennett had benefited
out
of his privileged relationship with those who colonized this country.
b) That Honourable
Bennett felt offended by Honourable Chinamasas remarks during
those submissions.
c) That Honourable
Bennett did not seek the protection of the Chair when he felt
offended by the remarks of Honourable Chinamasa.
d) That Honourable
Bennett without leave of the Chair stood up from his position, used
threatening language as he moved towards Honourable
Chinamasa, got to
where Honourable Chinamasa was standing and with considerable force
pushed him to the ground thereby felling him.
e) A number of Members
of Parliament intervened and restrained Honourable Bennett.
f) The Committee
observed movements from Honourable Mutasa towards Honourable Bennett
during the scuffle. At that stage it was not
clear if Honourable
Mutasa had kicked Honourable Bennett or if Honourable Bennett had
indeed pushed Honourable Mutasa to the ground
or if he had connected
a blow to the body of Honourable Mutasa.
g) The Committee
observed from the video clip that indeed there was a disturbance in
the House and the business of the House was interrupted.
There was
disorder in the House with a lot of confusion and commotion until
Honourable Bennett was taken out of the House by the
Sergeant at
Arms. Order was eventually restored after the intervention of the
Deputy Speaker.
The factual findings of the Committee are not challenged. On the
basis of these facts the Committee concluded that Bennett was
guilty
of contempt of Parliament. Their reasoning in coming to that
conclusion was as follows:
Decision of the Committee on culpability
From the reading of
these debates it was clear that during the debate on the Adverse
Report on the Parliamentary Legal Committee:
i) There was use of robust and sometimes offensive language by
Members of Parliament from both sides of the House.
ii) At one stage Honourable Chinamasa had to seek the protection of
the Chair after he felt that he was being called a thief by
Honourable
Sikhala.
iii) It was still not
clear if Honourable Bennett had indeed assaulted Honourable Mutasa or
if it was Honourable Mutasa who had kicked
Honourable Bennett.
The Committee analysed the submissions made by Advocate Matinenga
on behalf of Bennett on the defence of provocation. The
Committee came to the following conclusion that:
The defence of
provocation was not sustainable in this case. The legal authorities
in this country do not support a defence of provocation
on a charge
of contempt.
In any event, evidence
brought before the Committee does not support the defence of
provocation.
The language used by
Honourable Chinamasa was robust but that was expected in
Parliamentary debates. If Honourable Bennett had felt
offended by
the language he should have sought the protection of the Chair. In
this instance he did not seek the protection of
the Chair. He rose
from his seat without the permission of the Chair, advanced towards
Honourable Chinamasa, attacked him and pushed
Honourable Chinamasa
thereby causing him to fall.
Regarding an assault on
Honourable Mutasa, the Committee found that from the evidence brought
before it, Honourable Bennett had not
assaulted Honourable Mutasa.
The Committee accepted
that Honourable Bennett was guilty of a single act of contempt which
manifested itself in a number of events
in Parliament that afternoon.
Honourable Bennett rose
from his seat without permission from the Chair and assaulted
Honourable Chinamasa. It was that assault
on Honourable Chinamasa
which invited the reaction of Honourable Mutasa. It was that
assault which led to a commotion in Parliament
with Members of
Parliament reacting to the unusual event. Some managed to restrain
Honourable Bennett after he had floored Honourable
Chinamasa with
others rising from their seats and Honourable Mutasa kicking
Honourable Bennett.
As already stated after examining all the evidence the Committee
unanimously found Bennett guilty of contempt of Parliament.
The evidence of
contempt of Parliament by Bennett is overwhelming. A verdict of
guilty of contempt of Parliament was inevitable.
That verdict was
unanimous and is not challenged on the basis that the evidence does
not support the verdict reached by the Committee.
Having found Bennett guilty of contempt of Parliament, the
Committee recommended that Bennett be imprisoned for a period of
fifteen
months of which three months imprisonment be suspended on
certain conditions. The minority members of the Committee felt a
custodial
sentence was inappropriate and suggested community service
or a fine coupled with a suspended custodial sentence. I shall
revert
to the reasons for sentence later on in this judgment.
On the 26th, 27th and 28th of May
2004 the report of the Committee was tabled before the Parliament of
Zimbabwe and duly debated. The recommendation of the
Committee was
accepted by Parliament through a majority vote. The ruling partys
Members of Parliament voted in support of the
Committees
recommendation, while the opposition Members of Parliament voted
against the report. The applicant was found guilty
and duly
punished.
The facts outlined above, in my view, reveal that the proceedings of
the Committee were thorough and conducted in an eminently fair
and
impartial manner. Indeed, Bennett did not criticize the manner in
which the proceedings were conducted. His complaint related
to the
composition of the Committee and the composition of Parliament
itself. The contention being that the Committee and Parliament
were
judges in their own cause and therefore biased.
I now turn to deal with the four grounds of challenge.
Was the applicants right or entitlement to a fair hearing by
an independent and impartial court or other adjudicating authority,
as guaranteed by s 18 of the Constitution, violated?
The main submission in this regard is that the majority members of
the Committee were members of the ruling party, ZANU (PF), whilst
only two members of the Committee were members of the MDC, the
opposition party to which Bennett belonged. It was argued for the
applicant that the majority of the Committee members were judges in
their own cause as ZANU (PF) was the aggrieved party. It was
also
argued that Parliament consisting of a majority of ZANU (PF) Members
of Parliament was equally a judge in its own cause. In
short it was
argued that both the Committee and Parliament could not adjudicate in
this matter without violating the principle of
natural justice that
nobody should be judge in his own cause.
Mr Chihambakwe, for the first respondent, on the other
hand, argued that the complainant in this case was Parliament and not
ZANU (PF). The offence
Bennett was charged with was contempt of
Parliament and not contempt of ZANU (PF). On this basis, he
submitted, that Members of
Parliament belonging to the ZANU (PF)
party were competent to adjudicate upon a matter of contempt of
Parliament by the applicant.
He submitted that there was no
conflict of interest.
There is substance in
Mr Chihambakwes submission. The applicant was
charged with contempt of Parliament and Parliament is a separate and
distinct entity from ZANU (PF).
In fact, if the applicants
contention were correct, then Members of Parliament from his own
party could not adjudicate as they,
on the applicants argument,
would be the committers of the contempt. The MDC Members of
Parliament, on Bennetts argument,
are the assailants and ZANU (PF)
Members of Parliament the assaulted, accordingly both ZANU (PF) and
MDC Members of Parliament would
have a conflict of interest. This
argument, in my view, is absurd. I do not accept that the
appointment of three out of five
members of the Committee from ZANU
(PF) to enquire into the alleged contempt of Parliament by the
applicant per se constitutes a violation of the rules of
natural justice that nobody should be a judge in his own cause.
In considering the issue of a fair hearing in this case, it has to
be borne in mind that when Parliament sits as a court it is
not
sitting as a court of law or an adjudicating authority. It is a
court of its own kind, created by law, namely by the Constitution
itself. See Mutasa v Makombe NO 1998 (1) SA 397 (ZSC) at
402E-G wherein it was stated:-
A finding of guilt by Parliament on a contempt offence is not a
crime in the conventional sense. When dealing with these contempt
offences Parliament, though sitting as a court, does not sit as a
court of law. Its proceedings are not in the nature of a public
criminal trial as envisaged in s 18(2) of the Constitution; for
Parliament is not an independent and impartial court established
by law. It exercises its own jurisdiction and powers conferred
upon it by the Privileges, Immunities and Powers of Parliament
Act.
That it does so is recognised in the Constitution. Section 13(2)(b)
thereof provides that no person shall be deprived of
his personal
liberty save, inter alia, as may be authorised by law in
execution of the order of a court punishing him for contempt of that
court or of another court
or tribunal or in the execution of the
order of Parliament punishing him for a contempt
Consequently failure by Parliament, when sitting as a court, to
follow certain procedures that are followed in a court of law
does
not necessarily mean that such hearing is not fair or impartial.
The procedures in the two courts are fundamentally different.
In a
court of law, the court hears evidence, evaluates the evidence, and
makes findings of fact. Thereafter a court of law applies
the law
to the facts it finds established by the evidence. The outcome of
that process constitutes the determination of the court
of law.
Failure to follow this procedure by a court of law is an irregularity
constituting a violation of the right protected by
s 18 of the
Constitution. In the court of Parliament, the procedure is
fundamentally and totally different. In the court of Parliament
due
process is satisfied by the mere moving of a motion setting out the
allegation, debate and voting on the motion. At the end
of the
debate the question of a verdict and punishment is determined by a
majority vote of the Members of Parliament. More often
than not,
either by design or otherwise, the vote to determine the outcome of
any debate is along party or partisan lines. This
Court, in
Mutasas case, supra, held that s 18(2) and s 18(9)
of the Constitution do not apply to a trial by Parliament.
The facts of the Mutasa case supra are as follows:
Upon a motion being passed and carried in the Zimbabwe Parliament,
Mutasa had been ordered to attend the House,
stand in his place and
be reprimanded by the Speaker. The reprimand was given for certain
remarks which Mutasa had made outside
Parliament which had been
adjudged to be in contempt of Parliament. Mutasa thereupon brought
proceedings in the High Court of Zimbabwe
for an order setting aside
the finding that he was guilty of contempt of Parliament, alleging
that the procedure which had been adopted
by the Select Committee of
Parliament, which had been appointed to investigate the utterances
made by Mutasa outside Parliament,
had violated Mutasas
fundamental right under s 18 of the Constitution to be afforded
a fair hearing. He also contended
that the utterances he had made
outside Parliament were protected by his right to the enjoyment of
freedom of expression as enshrined
in s 20 of the Constitution.
Mutasa also complained that his entitlement to a fair hearing by an
independent and impartial
court was violated by the Committees
refusal to allow him to be legally represented at the hearing.
Mutasas contentions were
dismissed.
GUBBAY CJ, delivering the judgment of the full Bench of this
Court, had this to say at p 402I - 403A:
The line drawn in
the Constitution between punishment for contempt under an order of
court or tribunal, and that imposed by Parliament,
is significant and
important. It indicates plainly, to my mind, that, in utilizing its
powers under the Privileges, Immunities
and Powers of Parliament Act
in dealing with contempt offences, Parliament is not exercising a
criminal or civil jurisdiction.
Rather one sui generis,
being the jurisdiction expressly authorised by law.
Thus in respect of
contempt offences s 18(2) of the Constitution, which stipulates
that every person charged with a criminal offence is to be
afforded a fair hearing by an independent and impartial court, is of
no application. Nor is s 18(9). It concerns
the
determination of the existence of civil rights and obligations and
provides that in respect thereto every person is entitled
to be
afforded a fair hearing by an independent and impartial court
or other adjudicating authority. Parliament is not such a
court or authority.
The facts of Mutasas case, supra, may not be
identical to the facts of this case but they are sufficiently similar
to make Mutasas case, supra, applicable, with equal
force to this case. In both cases the applicants complained that
their right to a fair hearing protected
under s 18 of the
Constitution had been violated. In the Mutasa case, supra,
by reason of him having been denied legal representation, and in the
present case, by the violation of the principle that no man
should be
a judge in his own case. The principle enunciated in Mutasas
case, supra, that when Parliament sits as a court it is not an
adjudicating body but court sui generis established by the
law, the Constitution and, consequently s 18 of the Constitution is
not applicable applies to this case. The
applicant has not argued
that Mutasas case supra was wrongly decided. It
was argued for the applicant that Mutasas case, supra,
is distinguishable. Counsel for the applicants submissions in
this regard are found in paragraphs 15-18 of his heads of argument:
15. It must be recognised immediately that GUBBAY CJ in
Mutasa supra suggested that s 18(2) and s 18(9) of
the Constitution did not apply when Parliament found a member guilty
of contempt.
Whether this approach was correct is, with respect,
open to significant doubt. However, for purposes of this case, it
is not
necessary to decide whether Mutasa was correctly
decided.
16. This is because
Mutasa did not involve the deprivation of liberty it
involved a suspension from Parliament. In contrast, the present
case involves
a severe deprivation of liberty a sentence of
fifteen months in jail (three months suspended).
17. Because the present
case involves the deprivation of liberty, s 18 of the
Constitution must be read in the light of the guarantee
of individual
liberty, which is contained in s 13 of the Constitution.
Whatever the correctness of the decision in Mutasa, we submit
that any deprivation of liberty may take place only as a consequence
of a procedurally fair hearing in accordance with
natural justice.
The matter must therefore be approached differently to Mutasa.
Indeed, in his decision, GUBBAY CJ recognised that the
circumstances of a particular case of contempt could nevertheless
produce a violation of constitutional rights:
Of course, in Zimbabwe
[contempt] jurisdiction must be
exercised in a manner not inconsistent with or offensive to the
Declaration
of Rights in the Constitution. For instance, the courts
would not tolerate a situation in which the Speaker decreed that a
member
guilty of a contempt was to stand before the House chained and
gagged to receive his punishment.
18. Moreover, Mutasa is additionally distinguishable on the
grounds that the applicant in that matter expressly abandoned his
allegations of bias on the
part of the committee which enquired into
his contempt (see Mutasa at 404A). Had these allegations
been persisted in, and found as a fact by the Court, the logical
corollary would have been that
the proceedings were nullified,
because bias (or the reasonable perception of bias) in law has that
effect (per CORBETT CJ in
Council of Review, SADF v Monnig
1992 (3) SA 482 (A) at 495 B-D). In this regard, moreover, it
is inconceivable that the Constitution could countenance the
deprivation of liberty through a process which did not meet the
requirements of natural justice. By way of comparison, the
South African
Constitutional Court has two inter-related
constitutional aspects:
the State may not deprive its citizens of liberty for reasons
that are not acceptable, nor, when it deprives its citizens
of
freedom for acceptable reasons, may it do so in a manner which is
procedurally unfair.
De Lange v Smuts NO and Ors 1998 (3) SA 785 (CC) at para 18;
S v Coetzee and Ors
1997 (3) SA 527 (CC) at para 159.
Crucially, this holding
of the Constitutional Court was sustained under both the 1993 and
1996 Constitutions, despite the fact that
neither section which
protected liberty expressly referred to the notion of procedural
fairness. The Court described the right
to procedural fairness as
being implicit in the constitutional guarantee of freedom.
[T]he requirement of fairness or due process or
natural justice
however one wishes to label it, is implicit
in this right.
Nel v Le Roux NO and Ors 1996 (3) SA (CC) at para 12.
See also De Lange
supra at para 22.
While I accept as I have already stated that the facts of Mutasas
case, supra, are not identical to the facts of this case
they are sufficiently similar to make Mutasas case, supra
applicable to this case with equal force. The basis upon which we
are urged to make a distinction has no substance. Mutasas
case, supra, clearly states that s 18 of the Constitution does
not apply to proceedings of Parliament when sitting as a court. The
proceedings
being impugned herein are of Parliament sitting as a
court, accordingly s 18 of the Constitution has no application.
In the result, I am satisfied that, on the authority of Mutasas
case supra, this ground of challenge cannot succeed.
Was the applicant discriminated against on the grounds of race
or political opinion contrary to the provisions of s 23 of the
Constitution?
The Constitution in s 23 prohibits discrimination on the
grounds of race or political opinion. The relevant part of s 23
provides as follows:
23 Protection from discrimination on the grounds of race, etc
(1) Subject to the provisions of this section
(a) no law shall make any provision that is discriminatory either of
itself or in its effect; and
(b) no person shall be
treated in a discriminatory manner by any person acting by virtue of
any written law or in the performance
of the functions of any public
office or any public authority.
The applicants contention that he was discriminated against on
the grounds of race and political opinion seems to be based upon
the
following allegations
1. That Chinamasa made remarks to the effect that if Bennett were a
black person he would have been ready to forgive and forget;
and
2. That Chinamasa and
Mutasa also committed contempt of Parliament but because they were
black and belonged to the ruling party, ZANU
(PF), no action was
taken against them.
I am not satisfied on the record that Bennett was discriminated on
the basis of race or political opinion.
Whilst the remarks of Chinamasa could give rise to an inference of
racism, those remarks can only reflect the views or attitude
of
Chinamasa. They cannot be ascribed to or attributed to either
members of the Committee or to Parliament. The Committee and
Parliament adjudicated in this matter not Chinamasa. There is no
evidence on the record to suggest that the views of Chinamasa
were
shared by or, in any way, influenced the Committee or Parliament in
their determination of this matter.
This allegation cannot, in my view, form the basis of a violation of
the applicants right, as guaranteed under s 23 of the
Constitution.
The second basis of the allegation of discrimination is that both
Chinamasa and Mutasa committed contempt of Parliament but no action
was taken against them. The Committee was appointed in terms of a
motion passed by Parliament. The terms of reference of that
motion
specifically directed the Committee to investigate the allegation of
contempt of Parliament by Bennett. The motion which
constituted the
terms of reference of the Committee did not authorise an
investigation of either Chinamasa or Mutasa. The Committee
had no
mandate to enquire into the question of whether Chinamasa or Mutasa
committed contempt of Parliament. Indeed, if Bennett
or his
colleagues in the MDC wanted an inquiry into the conduct of Chinamasa
and Mutasa with a view to establishing whether or not
they too had
committed contempt of Parliament, then Bennett or his colleagues
should have moved for an amendment to the motion that
established the
Committee to widen its mandate to include an inquiry into the conduct
of Chinamasa and Mutasa. In the absence of
any attempt to get
Parliament to determine the issue of Chinamasa and Mutasas conduct
an accusation of discrimination on this
basis is not sustainable.
It is on this basis that I am
satisfied that the second ground of challenge also fails.
Does the punishment imposed on Bennett constitute inhuman or
degrading punishment, prohibited by s 15(1) of the Constitution?
Section 15 of the Constitution prohibits the imposition of
inhuman or degrading punishment. The relevant part of s 15 of
the
Constitution provides as follows:-
15 Protection
from inhuman treatment
(1) No person shall
be subjected to torture or to inhuman or degrading punishment or
other such treatment.
Bennett contends that the punishment imposed upon him was inhuman or
degrading and is prohibited by s 15 of the Constitution. The
issue
that falls for determination is what constitutes inhuman or degrading
punishment and whether the punishment imposed on Bennett
constitutes
inhuman or degrading punishment.
I pause here to point out that the Attorney-General, in his written
heads of argument, submitted that the punishment in this case
was
inhuman or degrading. That submission was, however, withdrawn by
the Attorney-General before the Attorney-General was called
to
address the Court. The court is not privy to the reasons for the
withdrawal. I will, therefore, proceed on the basis that
no such
concession was made.
The issue of what constitutes inhuman or degrading punishment was
considered by this Court in the case of S v Ncube; S v Tshuma; S v
Ndhlovu 1988 (2) SA 702. In that case this Court departed from
the concept that inhuman or degrading punishment is primarily aimed
at the
quality or the nature of the punishment. Hitherto it had
been held in Gundu v Sheriff of Southern Rhodesia 1965 RLR 301
(SRA) and R v Runyowa 1966 (2) SA 495, that the words inhuman
or degrading punishment were to be restricted to the modes and
types of punishment
which were in themselves inhuman or degrading.
This Court, following a line of American cases, departed from the
above limited concept of what constitutes inhuman or degrading
punishment. GUBBAY JA (as he then was) at 715I-716E expressed
the unanimous view of this Court in the following terms:
There are many decisions of the Federal Supreme Court of the
United States which lay down unequivocally that, under the protection
afforded the individual by the Eighth Amendment to the Constitution,
any punishment imposed upon him by the State must be graduated
and
proportionate to the crime he has committed. His constitutional
right will have been infringed if, having regard to the nature
and
quality of the offence committed, the sentence is so unfit as to be
grossly disproportionate. In other words, although the
State may
impose punishment the effect of that punishment must not be grossly
disproportionate to what would have been appropriate.
See, for
instance, Weemes v United States 217 US 349 at 367 (54 L Ed
793 at 799); Gregg v State of Georgia 428 US 153 at 173 (49
L Ed 2d 859 at 875); Ingraham v Wright 430 US 651 at 667
(51 L Ed 2d 711 at 727-8); Hutto v Finey 437 US 678 at
685 (57 L Ed 2d 522 at 531); Solem v Helm 463 US 277 at
284 (77 L Ed 2d 637 at 645).
In citing these
authorities in support of the principle of proportion in punishment,
I am aware of its rejection in Gundu and Anor v Sheriff of
Southern Rhodesia and Anor 1965 RLR 301 (SRA) and R v
Runyowa 1966 (2) SA 495 (PC) (1966 RLR 42 (PC)) ([1966] 1 All ER
633).
In both these cases it
was held that the words inhuman or degrading punishment are to
be restricted to modes or types of punishment
which are in themselves
inhuman or degrading and are not to be construed in the wider sense
of including punishment which, though
not necessarily inhuman or
degrading per se, may become so when it is excessive in
relation to the offence for which it is prescribed.
With due deference,
that to me is an unjustifiably narrow interpretation of a fundamental
right. I do not regard it as unreasonable
to suggest that the
inhumanity or degrading nature of a punishment may well depend on the
context in which, and the reasons why,
it is imposed. Albeit
capital punishment is not per se unconstitutional (see
s 12(1)) it would be inhuman or degrading if arbitrarily imposed
for, say, theft, fraud, or indecent assault.
A good example of the
working of this principle is afforded in the case of Rummel v
Estelle 445 US 263 (63 L Ed 2d 382). See also Corwin and
Peltasons Understanding the Constitution 10 ed at
213-14.
I respectfully agree with the view that a punishment that is
grossly disproportionate to the transgression constitutes a
violation of s 15(1) of the Constitution, that is to say, is
inhuman or degrading.
In my view, it makes no difference whether the punishment is
imposed by a court of law or by Parliament. As long as it is
grossly
disproportionate to the offence, it is prohibited by s 15(1)
of the Constitution.
In arriving at the
punishment that the Committee considered appropriate to recommend to
Parliament, the Committee reasoned as follows:
8 SENTENCE
In terms of the Privileges, Immunities and Powers of Parliament Act
[Chapter 2:08] s 21, Parliament has power to either
impose a level seven fine or imprisonment up to two years. In terms
of s 16(1)
of this Act, as read with s 3 of (the) same, to
impose any penalty which was not inconsistent with sentences which
the House
of Commons of the Parliament of the United Kingdom
could impose on 18 April 1980.
In the light of the above the Committee considered the appropriate
punishment. The majority of the members of the Committee felt
that:
a) Honourable Bennetts conduct was the worst attack on the dignity
of Parliament known in the history of Parliament.
b) Assaulting another
Member of Parliament, worse still a Cabinet Minister, who is also
Leader of the House, could not be tolerated
at all and Parliament has
to express its displeasure by imposing a deterrent sentence.
c) The speech by
Honourable Chinamasa cannot be said to have provoked
Honourable Bennett as to morally justify his conduct
on that
particular day. The Land Reform Programme has been going on for
four years. Whatever happened on Honourable Bennetts
farms
(if it is true) cannot be used as justification for the morally
reprehensible conduct he displayed towards Honourable Chinamasa
and Parliament itself.
d) Honourable Bennett
did not show any remorse or even attempt to apologise to both the
Speaker and Honourable Chinamasa.
The Committee was not
favoured with any reasonable excuse for that failure.
Honourable Bennett held himself out as a hero
after the event
from the Press statement he made thereafter and even from his
testimony to the Committee.
e) The appropriate
sentence should send a clear message to would-be offenders that
Parliament shall never be used as a boxing arena
but a Chamber for
debates. Any member who feels offended by the statements of another
member or the conduct of another member should
seek the protection of
the Chair or the Speaker. Only a custodial sentence would meet the
justice of this matter. The minority
members of the Committee felt
that the moral blameworthiness of Honourable Bennett was not so
high as to warrant a custodial
sentence. Community service was
suggested. A level seven fine coupled with a suspended sentence was
suggested.
The Committee voted on the appropriate penalty. The majority
voted in favour of a custodial sentence of fifteen months with three
months suspended on condition of good behaviour.
The other two members
voted against the custodial sentence, being in favour of the other
lesser forms of punishment.
Committees Recommendation
That Honourable Bennett, having been found guilty of contempt,
be sentenced to fifteen months imprisonment with labour of
which
three months are suspended on conditions (condition?) that he does
not commit a similar offence within five years and for which
he is
sentenced to imprisonment.
It is quite clear from the above that in arriving at an appropriate
punishment the Committee took into account all the relevant
factors,
that is, the mitigating and the aggravating factors. The reasoning
process of the Committee cannot be faulted. Despite
that correct
approach the majority of members of the Committee differed with the
minority as to what was an appropriate punishment.
The majority
voted for the punishment imposed while the minority thought a much
more lenient punishment set out above was appropriate.
Whether the
aggravating features, as weighed against the mitigating features,
justify the harsh punishment recommended by the majority
members of
the Committee or should have led to the imposition of the overly
lenient punishment recommended by the minority members
of the
Committee is, to a large extent, a matter of value judgment.
It admits very little doubt that the punishment imposed on Bennett is
severe even when one takes into account as did both the Committee
and
Parliament that this was the worst case of contempt of Parliament in
the history of Zimbabwe and that there was need for deterrence
of
such conduct. It certainly is not a punishment that this Court
would have imposed on the facts of this case. However, it is
not a
question of what this Court considers to be an appropriate
punishment. This Court can only set aside a punishment imposed
by
Parliament if such punishment is grossly disproportionate to
the contempt of Parliament committed. In my view the punishment
imposed in this case, though severe, is not grossly disproportionate
to the offence.
Parliament can impose a maximum punishment of two years
imprisonment for contempt of Parliament. That is its maximum
jurisdiction
in terms of the Act. The punishment imposed in this
case, which Parliament considered the worst case of contempt of
Parliament
in the history of Zimbabwe, is way below the maximum
penalty permissible under the law.
In coming to the conclusion that the punishment imposed in this case
is not grossly disproportionate I have taken into account all
the
factors that Parliament took into account both mitigating and
aggravating, and, in particular, the fact that an assault on a
Minister of Government and the Leader of the House during
Parliamentary proceedings must rank amongst the worst cases of
contempt
of Parliament. It is akin to assaulting a judge during
court proceedings. It is not the degree of force used in the
assault that
is critical in determining an appropriate punishment but
the circumstances of the assault. In this case it is the occasion,
the
status of the assailant and the assaulted and the gross violation
of the dignity of Parliament. Bennett is not contrite. He never
apologised for his appalling conduct. Evidence on record suggests
that he bragged and boasted about what he had done. This, in
my
view, is totally unacceptable.
I am also mindful of the fact that there was an element of
provocation in this case but in assessing what weight is to be
attached
to this provocation, I have borne in mind the unchallenged
evidence that allegations of land thefts by the descendants of
settlers
and colonialists was nothing new and had been traded between
and amongst politicians for quite a while before this incident.
These
allegations could not have come as a surprise to Bennett. It
is quite clear that if Bennett had sought protection from the Chair
against Chinamasa such protection would have been readily afforded.
In the result I am satisfied that the punishment imposed on Bennett,
while severe, was not grossly disproportionate punishment for
the
contempt of Parliament which he committed.
Consequently his right protected by s 15(1) of the Constitution was
not violated.
Is s 16 of the Privileges, Immunities and Powers of
Parliament Act [Chapter 2:08] ultra vires
the Constitution?
The fourth and last ground on which the applicant challenges the
proceedings is that s 16 of the Act is ultra vires the
Constitution.
Section 16 of
the Act provides as follows:
16 Jurisdiction
of Parliament
(1) It is declared for
the avoidance of doubt that Parliament has all such powers and
jurisdiction as may be necessary for inquiring
into, judging and
pronouncing upon the commission of any act, matter or thing in this
Part declared to be an offence without derogation
from the powers and
jurisdiction exercisable by Parliament by virtue of paragraph (b)
of section three with respect to the commission
of any act, matter or
thing, whether or not in this Part declared to be an offence, which
is or may be adjudged by Parliament to
be a contempt.
(2) Parliament shall
have power to award and execute the punishments provided by this Part
for the commission of any act, matter
or thing which in this Part is
declared to be an offence.
(3) Subsection (2)
shall not be construed as precluding Parliament from awarding and
executing any punishment for the commission
of any act, matter or
thing referred to in that subsection which Parliament has power and
jurisdiction to award and execute by virtue
of paragraph (b) of
section three in addition to or instead of any punishment provided by
this Part for the commission of that
act, matter or thing.
(4) Parliament sitting
as a court shall have all such rights and privileges of a court of
record as may be necessary for the purpose
of summarily inquiring
into and punishing the commission of any act, matter or thing which
in this Part is declared to be an offence.
Section 16 of the Act quite clearly confers upon Parliament
power to impose the punishment it imposed in this case.
I did not understand the applicant to take issue with this,
consequently once it is established that s 16 of the Act is intra
vires the matter ends there.
It was argued that s 16 of the Act is ultra vires the
Constitution because the Constitution of Zimbabwe does not confer on
the Zimbabwean Parliament the power to make a law providing
for
punishment for past misconduct such as contempt of Parliament. It
was argued that only the Parliament of the United Kingdom
has such
punitive powers, or power to punish for past misconduct such as
contempt of Parliament. All other Parliaments do not have
such
power. It was argued that Parliaments other than the United
Kingdom Parliament can only impose custodial punishment to
prevent
disruption of Parliamentary proceedings. They have no power to
punish past misconduct such as contempt of Parliament.
They have
preventive as opposed to punitive powers to punish for contempt of
Parliament.
It was further submitted that the punitive powers of the United
Kingdom Parliament are derived from the historical incident that
it
once upon a time was the High Court of Parliament. The punitive
jurisdiction is peculiar to the Parliament of the United Kingdom
because of this historical fact. It is a jurisdiction derived from
common law.
In support of this proposition, we were referred to Erskine May,
who describes this power as follows:
The power to punish for contempt has been judicially considered to
be inherent in each House of Parliament not as a necessary
incident
of the authority and function of a legislature (as might be argued in
respect of certain privileges) but by virtue of their
descent from
the undivided High Court of Parliament and in right of the lex et
consuetude parliamenti. In this, the position of the
United Kingdom Parliament differs from that of independent
Commonwealth or colonial legislatures.
See Erskine Mays Treatise on The Law, Privileges,
Proceedings and Usage of Parliament 21 ed at p 69-70.
Counsel for the applicant also cited a number of cases in support
of this proposition. In particular he cited the case of Kielley
v Carson [1842] 13 ER 255 wherein their Lordships had this to say
at p 253:
Their Lordships see no reason to think that in the principle of
the common law, any other powers are given (colonial legislatures)
than such as are necessary to the existence of such a body, and the
proper exercise of the functions which it is intended to execute.
These powers are granted by the very act of its establishment
In conformity to this principle we feel no doubt that such
an
assembly has the right of protecting itself from all impediments to
the due course of its proceedings To the full extent of
every
measure which it may be really necessary to adopt, to secure the free
exercise of their legislative functions, they are justified
in acting
by the principle of common law. But the power of punishing anyone
for past misconduct as a contempt of its authority,
and adjudicating
upon the fact of such contempt, and the measure of punishment as a
judicial body, irresponsible to the party accused,
whatever the real
facts may be, is of a very different character, and by no means
essentially necessary for the exercise of its functions
by a local
legislature, whether representative or not. All these functions may
be well performed without this extraordinary power,
and with the aid
of the ordinary tribunals to investigate and punish contemptuous
insult and interruptions
It is said, however,
that this power belongs to the House of Commons in England; and
this, it is contended, affords an authority
for holding that it
belongs as a legal incident, by the common law, to an assembly with
analogous functions. But the reason why
the House of Commons has
this power, is not because it is a representative body with
legislative functions, but by virtue of ancient
usage and
prescription; the lex et consuetude parlimenti, which forms
part of the common law of the land, and according to which the High
Court of Parliament, before its division and the
Houses of Lords and
Commons since, are invested with many peculiar privileges, that of
punishing for contempt being one.
Reliance was also placed on the Canadian Supreme Court case of
Landers v Woodworth (1878) 2 SCR 158 (SC) wherein Ritchie
said:-
I think a series of authorities, binding on this court, clearly
establish that the House of Assembly of Nova Scotia has no power
to
punish for any offence not an immediate obstruction to the due course
of its proceedings and the proper exercise of its functions,
such
power not being an essential attribute, nor essentially necessary,
for the exercise of its functions by a local legislature,
and not
belonging to it as a necessary to legal incident
I accept the above cases are authority for the proposition that the
United Kingdom Parliament derives its jurisdiction to punish
past
contempts of Parliament from its unique historical position of having
been at one time the High Court of Parliament of the United
Kingdom.
That jurisdiction is clearly derived from common law.
I do not accept, however, that these cases are authority for the
proposition that Parliaments in jurisdictions other than the United
Kingdom cannot have punitive jurisdiction conferred on them by their
own Constitutions and/or domestic legislation. I have no
doubt
that Parliaments other than the United Kingdom Parliament can derive
power to punish past misconduct such as contempt of Parliament
conferred on them by the Constitutions or domestic statutes of their
own countries. The issue therefore is whether the Constitution
of
Zimbabwe and/or Zimbabwean legislation confers such power on the
Zimbabwean Parliament.
In fact, I did not understand the applicant to argue that the
Constitutions and domestic statutes of a country cannot, as a matter
of law, confer on a Parliament punitive jurisdiction for contempt of
Parliament. Indeed the applicants submission on the relevance
of
the authorities he cited is set out in paragraph 96 of the Heads of
Argument wherein it is submitted:-
For present purposes, the importance of this line of authority
lies, not in what is said about the inherent powers of representative
legislatures, but in the basis upon which it does so. An elected
legislature has to have protective powers to defend itself against
disruption and obstruction of its proceedings. But punitive powers
are not necessary for the proper performance of its functions.
This
is why Chapter V111 of the Constitution can best be reconciled with
sections 49 and 13(2)(b) by recognizing that a protective
parliamentary contempt jurisdiction is consistent with the
constitutional separation of powers but a punitive parliamentary
jurisdiction
is not. See Speaker of the National Assembly v De
Lille 1999 (4) SA 863 (SCA) at para 17.
The applicants argument in this regard therefore seems to be
that the court should give effect to the doctrine of separation
of
powers and deny the Zimbabwean Parliament punitive power in order to
reconcile Chapter VIII of the Constitution which vests judicial
authority in the courts and sections 49 and 13(2)(b) of the
Constitution which vests some judicial authority in Parliament.
I am not persuaded by this argument for the simple reason that I
see no conflict in between Chapter VIII of the Constitution and
sections 49 and 13(2)(b) of the Constitution. Section 79 clearly
vests judicial power in the courts. Sections 49 and 13(2)(b)
clearly vests some very limited judicial power in Parliament. In a
way one could say sections 49 and 13(2)(b) vests concurrent
judicial
power on Parliament in respect of contempt of Parliament. This
clearly was the intention of Parliament when it enacted
the
Constitutional provisions in question.
I accept that the Constitution provides for the doctrine of
separation of powers. I do not accept, however, that that doctrine
should be used as a basis for overriding the explicit language of s
49 and s 13(2)(b) of the Constitution. I find support for this
approach in the case of The Queen v Richards Ex parte Fitzpatrick
and Browne, Commonwealth Law Reports Vol. 92 - 54 55 p 157.
In that case the Australian High Court was seized with the issue of
the meaning
that should be ascribed to s 49 of the Australian
Constitution. An argument almost identical to applicants counsel
in this case
was proffered to the Australian High Court. DIXON CJ
dismissed that argument in the following terms:-
Then it was argued that this is a constitution which adopts the
theory of the separation of powers and places the judicial power
theory of the separation of powers and places the judicial power
exclusively in the judicature as established under the Constitution,
the executive power in the executive, and restricts the legislature
to legislative powers. It is said that the power exercised
by
resolving upon the imprisonment of two men and issuing a warrant to
carry it into effect belonged to the judicial power and ought
therefore not to be conceded under the words of s 49 to either House
of the Parliament. It is correct that the Constitution is
based in
its structure upon the separation of powers. It is true that the
judicial power of the Commonwealth is reposed exclusively
in the
courts contemplated by Chap III. It is further correct that it is a
general principle of construction that the legislative
powers should
not be interpreted as allowing of the creation of judicial powers of
authorities in any body except the courts which
are described by Chap
III ties in any body except the courts which are described by Chap
III of the Constitution. Accordingly,
it is argued that a strong
presumption exists against construing s 49 in a sense which would
enable the particular power we have
before us to be exercised by the
Senate or the House of Representatives. It was pointed out that in
the case of the Inter-State
Commission s 101 had received a
construction which made it impossible to invest the Inter-State
Commission with the character of
a court and confide to it judicial
functions, because it was not a body which fell within Chap. III.
That was relied upon as an
instance or example of the kind of
construction or interpretation which we were urged to adopt in the
case of s 49.
The consideration we
have already mentioned is of necessity an answer to this contention,
namely, that in unequivocal terms the powers
of the House of Commons
have been bestowed upon the House of Representatives. It should be
added to that very simple statement
that throughout the course of
English history there has been a tendency to regard those powers as
not strictly judicial but as belonging
to the legislature, rather as
something essential or, at any rate, proper for its protection.
This is not the occasion to discuss
the historical grounds upon which
these powers and privileges attached to the House of Commons. It is
sufficient to say that they
were regarded by many authorities as
proper incidents of the legislative function, notwithstanding the
fact that considered more
theoretically perhaps one might even
say, scientifically they belong to the judicial sphere. But
our decision is based upon the ground that a general view of the
Constitution and the separation of powers is not a sufficient
reason
for giving to these words, which appear to us to be so clear, a
restrictive or secondary meaning which they do not properly
bear.
(underlining is mine)
Richards case, supra, is clear authority for the
proposition that the language of the statute is the critical
consideration in determining whether Parliament
has punitive
jurisdiction or not.
The issue in this case therefore is what meaning is to be ascribed
to s 49 and s 13(2)(b) of the Constitution. Do these sections
confer on the Parliament of Zimbabwe power to make laws that provide
for the punishment of past misconduct such as contempt of Parliament.
Section 49 of the Constitution provides as follows:-
49 Privileges of Parliament and members and officers thereof
Subject to the
provisions of this Constitution, an Act of Parliament may make
provision to determine and regulate the privileges,
immunities and
powers of Parliament and the members and officers thereof, including
the Speaker, and to provide penalties for a person
who sits or votes
in Parliament knowing or having reasonable grounds for knowing that
he is not entitled to do so.
Section 13(1),(2)(a) and (b) of the Constitution provides as
follows:-
13 Protection of right to personal liberty
(1) No person shall
be deprived of his personal liberty save as may be authorized by law
in any of the cases specified in subsection
(2).
(2) The cases referred
to in subsection (1) are where a person is deprived of his personal
liberty as may be authorized by law
(a) in consequence of his unfitness to plead to a criminal charge or
in execution of the sentence or order of a court, whether in
Zimbabwe
or elsewhere, in respect of a criminal offence of which he has been
convicted;
(b) in execution of the
order of a court punishing him for contempt of that court or
another court or tribunal or in execution of the order
of Parliament punishing him for a contempt;.
Section 49 of the Constitution is an enabling provision. It gives
power to Parliament to make laws that determine and regulate
the
privileges, immunities and powers of Parliament. This power is
conferred on Parliament in the first segment of s 49 up to the
word
Speaker. I see nothing in the wording of that first segment
of s 49 that limits the power of Parliament to provide for
a
punishment. The power to make laws and regulations includes the
power to provide for punishment in the laws and regulations.
There is nothing in the language of s 49 that prohibits Parliament
either expressly or by implication from making a law providing
for
punitive punishment for contempt of Parliament. If there is any
doubt lingering in this regard it is put to rest by the explicit
language of s 13(2)(b). Section 13(1) of the Constitution
guarantees the individuals right to liberty. Section 13(2)(b) is
derogation of that right. It provides for the deprivation of
liberty in execution of an order of Parliament punishing a person
for
contempt of Parliament. There is nothing equivocal in s 13(2)(b).
It explicitly states that Parliament can issue an order
for
imprisonment as punishment for contempt of Parliament which is
precisely what was done in this case.
There is nothing in the language of s 13 which suggests that the
punishment referred in s 13(2)(b) of the Constitution is preventive
and not punitive. If anything, the context points in the opposite
direction. The section authorises the derogation on the right
to
liberty in execution of an order of a court punishing a person for
contempt of that court or tribunal. There is no doubt that
the
punishment referred to in respect of the court or tribunal is
punitive and relates to past conduct which constitutes contempt.
The same language is
used in respect of the contempt of Parliament. On what possible
basis can it be said that the word punishment
in respect of
contempt of court or tribunal means one thing while the word
punishment in respect of contempt of Parliament
means another
thing, namely punitive, in respect of the Court and preventive in
respect of Parliament.
I do not see any conflict between Chapter VIII and sections 49 and
13(2)(b) of the Constitution that requires conciliation by resorting
to the doctrine of separation of powers as contended for by the
applicant.
Sections 49 and 13(2)(b) clearly authorise Parliament to make laws
that provide for the punishment of past acts of contempt of
Parliament and s 16 of the Act is a law authorised by s 49 and
13(2)(b) of the Constitution. On this basis the fourth ground of
challenge cannot succeed.
There is the further point of law which is very relevant to this
case but was not raised on the papers or in argument. I simply
raise it but it is not the basis of any conclusion I have reached in
this case.
Section 3 of the Act
provides as follows:
3. Privileges, immunities and powers generally
Parliament and members and officers of Parliament shall hold,
exercise and enjoy
(a) the privileges, immunities and powers conferred upon Parliament
respectively, by this Act or any other law; and
(b) all such other
privileges, immunities and powers, not inconsistent with the
privileges, immunities and powers referred to in paragraph
(a), as
were applicable in the case of the House of Commons of the Parliament
of the United Kingdom, its members and officers, respectively,
on the
18th April 1980.
The constitutionality of s 3 has not been challenged. In the case
of Richards, supra, the Australian High Court considered the
meaning of s 49 of the Australian Constitution which provides:
The powers, privileges and immunities of the Senate and the House
of Representatives and of Members and the Committees of each
House,
shall be such as are declared by the Parliament, and until declared
shall be those of the Commons House of Parliament of the
United
Kingdom and its members and Committees, at the establishment of the
Commonwealth.
The Australian High Court concluded that the above s 49 of the
Australian Constitution transferred to the Australian Parliament
identical powers enjoyed by the United Kingdom Parliament on a
particular date. There is a striking resemblance between the two
provisions.
Similarly I have no hesitation in concluding that as of 18 April
1980 the privileges, immunities and powers of the Parliament of
the
United Kingdom including the punitive power to punish for contempt
were conferred on the Zimbabwean Parliament by s 3 of the
Act.
As I have already stated s 3 of the Act has not been impugned and
remains operative until successfully impunged. In the result
and
for the foregoing reasons s 3 conferred on the Zimbabwean Parliament
identical powers enjoyed by the United Kingdom Parliament,
which
include punitive powers for contempt of Parliament.
In the result the
application fails on all the four grounds raised and is, accordingly
dismissed. As has become the practice of
this Court in these
matters there will be no order as to costs.
CHEDA, JA: I
agree.
MALABA JA: I
agree.
GWAUNZA JA: I
agree.
SANDURA JA: I have
read the judgment prepared by CHIDYAUSKU CJ, but respectfully
disagree with it. Although a number of issues
were argued by
counsel, this application may be disposed of on the basis of a
determination of the main issue, which was whether
the sentence
imposed on Bennett contravened s 15(1) of the Constitution.
In my view, there can be no doubt that the sentence was grossly
disproportionate to the seriousness of the offence committed by
Bennett and was, therefore, unconstitutional in terms of s 15(1) of
the Constitution.
In order to facilitate an appreciation of the disproportionality of
the sentence I shall set out the relevant background facts
in the
matter. They are found in paragraphs 4,5,6 and 7 of Bennetts
founding affidavit, and were not seriously challenged by
the
respondents. Because of the relevance of the background facts in
the assessment of the appropriate sentence I shall set out
paragraphs, 4,5,6 and 7 in extenso. They read as follows:
4.1 I was elected as a Member of Parliament for the Chimanimani
Constituency during the general elections of 2000. I have therefore
been in Parliament since that time and from the time that I entered
Parliament, I have had to endure the kind of torment and abuse
from
members of the ruling party that I believed was impossible before I
entered Parliament. As a Member of Parliament belonging
to the
opposition Movement for Democratic Change, I am able to say that
there exists incredible acrimony between the ruling party
and members
of the opposition and this has been particularly heightened against
me as I represent a rural constituency where the
ruling party is
deemed to be generally strong and as a white Member of Parliament
coming from a rural constituency, I have generally
been treated with
disdain and outright animosity by members of the ruling party.
4.2. Despite being a
Member of Parliament, and despite being a representative of my
constituency, I have been treated as though I
have no right to live
in this country and all my attempts to assert these rights have been
met with abuse, intimidation, threats
and infractions of the law that
one can only imagine.
4.3 I am a commercial
farmer that operated Charleswood Estate which farm has been targeted
for compulsory acquisition for quite some
time and has been taken
over before the process of lawful acquisition has been exhausted in
the courts where the matter remains pending.
Senior members of the
ruling party have stated over and over again that I should not be
allowed to remain on the farm and I confirm
that even before
incarceration, I had been forced out of the farm through various
unlawful acts.
4.4 The police, army
and Central Intelligence Officers have invaded my farm illegally on
numerous occasions and some of them still
unlawfully remain on the
farm to date. During such illegal invasions these State agents have
committed numerous crimes on the farm
against my employees and myself
and property has also been looted to an extent where my own personal
clothes and effects have been
stolen.
4.5 Many of these
incidents have been reported to the police but regrettably as the
local police are part and parcel of these illegalities,
I have had no
joy at all in having my rights protected by the law. Some of my
employees who have been beaten up, tortured and generally
harassed
have also not received any joy at all as and when they have reported
these abuses to the local police.
4.6 In addition, these
operatives and government agents have also unlawfully removed farm
equipment from the farm and some of my livestock
on the farm has been
killed, sold or rebranded or subjected to other forms of cruelty by
these government agents. Some of the produce
such as the coffee
that I had grown at the farm has since been sold through the
government owned Arda despite the fact that this
had been presold to
overseas buyers who have since instituted proceedings against me for
non-delivery.
4.7 To demonstrate the
seriousness of these incidents which have caused me immense pain,
suffering, heartache and a sense of powerlessness
have been the extra
judicial execution of two of my employees being Stephen Tonera who
was executed in May 2003 and Shanie Manyenyeka
who was executed in
February 2004. Stephen Tonera was beaten to death by an operative
from the Presidents Office while Manyenyeka
was shot to death at
point blank range in cold blood by a member of the defence forces at
the farm. The two perpetrators of these
heinous extra judicial
executions are well known but regrettably, the police have not even
arrested one of them.
4.8 In an endeavour to
assert my rights and to stop these unlawful activities, I have
approached the High Court on a number of occasions
and obtained court
orders but such court orders have been wantonly ignored and defied by
the State and I give the following examples:
a) On 25th February 2004 the High Court granted me a
Provisional Order which gave my company leave to remain and carry on
business on Charleswood
Estate and that all State functionaries and
operatives were interdicted from interfering in any way with the
farming and business
operations at Charleswood Estate and that all
those State agents and functionaries who were unlawfully occupying
the farm at the
instance of the State were to vacate the farm
immediately. Although this order was served on the State, the
concerned State operatives
have completely disregarded it.
b) On the 18th
November 2003 the Magistrates Court at Mutare issued a Provisional
Order against the functionaries of the State led by Sergeant Nasho
and the Agricultural Rural Development Authority interdicting them
from setting foot or entering Charleswood Estate, from harassing
or
assaulting the employees at Charleswood Estate, and directing that
those State functionaries who were in occupation of the farm
vacate
it forthwith and again this order has been defied and ignored by the
State.
c) On 8 April 2003, the
High Court once again granted an order by consent which provided that
the State and its functionaries be interdicted
from threatening,
abusing, intimidating, harassing, assaulting or communicating with
myself or other directors that operate Charleswood
Estate, its
employees and their family members and that the directors, their
families and all employees were restored to their homes
on the farm
and again this order has been ignored.
d) In May 2002, the
High Court at Harare issued an order that barred the State from
acquiring Charleswood Estate but needless to say,
this has continued
to be ignored and to be defied by the State.
5. On the 9th April 2004 at approximately 0400 hours,
members of the Zimbabwe National Army, the Zimbabwe Republic Police
and the Support Unit
once again invaded and surrounded Charleswood
Estate despite the many court orders I have already referred to.
The invading forces
were under the leadership of one Dzapasi who was
accompanied by a Major Zimbango of the Army and an Inspector Manyama
of the police.
The officers alleged that they were acting on
instructions of the Provincial Governor of Manicaland, Retired Major
General Michael
Nyambuya and His Excellency the State President
Robert G Mugabe and that these were the only two people from whom
they would accept
instructions to stop their activities. The army
of invaders thereafter forcibly took possession of the keys to the
properties on
the farm including keys to my house and vehicles and
helped themselves to such consumables as fuel that was being used for
faming
operations on the farm. After assembling the workers, the
invaders demanded that those who wanted to continue working for me
had
to pack their bags and leave the farm immediately after which
they recorded the identity details of the workers before ordering the
farm management consisting of six people who were requested to vacate
the farm forever. These six together with other farm workers
who
have subsequently been kicked out of the farm are now living as
internally displaced persons. In effect, the army, police and
the
CIO were able to evict persons without recourse to the law and such
persons have now been reduced to being refugees in their
own country.
What this has done of course is to stop the farming operations on
Charleswood Estate as the members of management
who were able to
oversee the farming operations have been unlawfully evicted from the
farm as I had been before them.
6. As a direct result
of the said harassment, my family was effectively unlawfully evicted
from our home despite the courts having
asserted our rights over and
over again. Following this unlawful eviction, I thereafter leased a
farm in Ruwa and regrettably the
same ruling party supporters, CIO
members, army personnel and the police continued with the harassment
whereby my rented home was
raided on a regular basis with farming
operations being disrupted to a point where it was pointless to
continue. My landlord was
also equally harassed for leasing the
farm to me and I was once again forced to seek refuge elsewhere.
6.1 As it became
apparent that I would not be able to farm at all in Zimbabwe, I
resigned myself to a life where I have to consider
starting a new
profession altogether as I cannot farm even on leased premises as is
clear from the incident on the Ruwa farm. Neither
can I be employed
as a farm manager as all landowners or lessors are aware that if I am
seen on their land, they risk losing it through
the various methods
that were used to dispossess me of my farms and the farm I leased in
Ruwa. It was with this background that
the events that caused my
being imprisoned occurred where I found myself in middle age, with a
family to support but with no means
of livelihood as farming had been
my only means of livelihood. The fact that I have had to try and
find a means of livelihood when
I have been dispossessed of all my
assets including equipment, livestock, produce with virtually nothing
as I could not even raise
capital by selling the movable assets has
put me under severe stress particularly as the law has failed to
protect me despite orders
having been granted in my favour.
7. On the 18th
May 2004 I was at Parliament when debate ensued on the Stock Theft
Amendment Bill. During the debate I made a contribution chronicling
the experiences that I have had particularly with the theft of
livestock by known persons who have not been arrested and queried
the
rationale of making very tight stock theft laws when in fact these
laws were not being implemented by the police as they have
allowed
stock thieves to go scot-free after stealing my livestock.
7.1 Instead of dealing
with my contributions to the debate, the Honourable Patrick Chinamasa
instead launched into a tirade of abuse
towards me and my forefathers
alleging that we were the thieves. He then went on to assure the
nation and myself that notwithstanding
the existence of court orders
in my favour he would ensure that I never set foot on Charleswood
Estate again. I was absolutely
amazed at such threats coming as
they did from the Minister responsible for Justice in the country who
ought to be in the forefront
in ensuring that the justice system
works for the benefit of all Zimbabweans. As Minister of Justice, I
expected the Honourable
Chinamasa to commiserate with me and to
reassure me that as Minister of Justice, he would do everything to
ensure that the court
orders were obeyed and that I was given the
protection that every citizen is entitled to. Although I do not
remember precisely
what happened and only really saw the events that
followed thereafter from the video clip that I later viewed, I
believe that Honourable
Chinamasas words emphasizing the
hopelessness of my position must have so blinded me that I reacted as
I did under what was clear
extreme provocation in circumstances where
I had been under stress for quite some time.
As already stated, the above averments were not seriously
challenged by the respondents. That is clear from the opposing
affidavit
deposed to by the first respondent with the authority of
the second, third and fourth respondents.
Paragraphs 6 to 10 of
the opposing affidavit deal with the averments made by Bennett in
paragraphs 4,5,6 and 7 of his founding affidavit
already set out in
this judgment, and read as follows:
6. Ad paras 4.,4.1,4.2,4.3,4.4,4.5,4.6 and 4.7 of the Affidavit
of Roy Leslie Bennett
Save to say that the
applicant was a white farmer and a white Member of Parliament
representing Chimanimani, I have no knowledge of
the rest of the
allegations, I do not admit the same and I put the applicant to the
proof thereof.
7. Ad paras
4.8(a),(b),(c) and (d) of the Affidavit of Roy Leslie Bennett
I have no knowledge of
these allegations, I do not admit the same and I put the applicant to
the proof thereof.
8. Ad paras 5,6 &
6.1 of the Affidavit of Roy Leslie Bennett
I have no knowledge of
these allegations, I do not admit the same and I put the applicant to
the proof thereof.
9. Ad para 7 of the
Affidavit of Roy Leslie Bennett
These allegations call
for no comment.
10. Ad para 7.1 of
the Affidavit of Roy Leslie Bennett
(a) I deny that Hon. Chinamasas utterances in this respect
amounted to extreme provocation of applicant as such language is not
unusual in the context of parliamentary debate.
(b) In any event, even
if applicant had felt provoked by Hon. Chinamasas utterances, he,
as an honourable member, should have
utilized the procedures and
rules of Parliament that are available to any member who might feel
that another members contribution
amounts to abuse.
(c) Further, given the
apparently purposeful approach of applicant in this incident, I find
it difficult to believe his assertion
that he cannot remember
carrying out the assault of Hon. Chinamasa.
In my view the opposing affidavit does not seriously challenge the
averments made by Bennett. In spite of the fact that Bennett
mentioned the names of various government officials who allegedly
perpetrated numerous illegal acts on his farm, no affidavits from
the
officials in question were filed denying the very serious allegations
made by Bennett.
In the circumstances, the sentence imposed on Bennett has to be
examined on the basis that the allegations made by him in paragraphs
4,5,6 and 7 of his founding affidavit are true.
In addition, it has to be borne in mind that the offence committed
by Bennett was essentially a common assault. Bennett pushed
Chinamasa who, as a result, lost his balance and fell.
The principles to be applied in determining whether a sentence
contravenes s 15(1) of the Constitution were set out by this Court
in S v Ncube; S v Tshuma; S v Ndhlovu 1988 (2) SA 702 (ZSC)
at 715G-I, where GUBBAY JA (as he then was) said:
But s 15(1) is not confined to punishments which are in their
nature inhuman or degrading. It also extends to punishments which
are grossly disproportionate; those which are inhuman or
degrading in their disproportionality to the seriousness of the
offence,
in that no one could possibly have thought that the
particular offence would have attracted such a penalty the
punishment being
so excessive as to shock or outrage contemporary
standards of decency.
Applying those principles to the facts of the present case there
can be no doubt that the sentence of 15 months imprisonment
with
labour of which 3 months imprisonment with labour was
conditionally suspended, is grossly disproportionate to the
seriousness
of the offence committed by Bennett.
In my view, no one could possibly have thought that the offence
committed by Bennett, which was essentially a common assault,
deserved
a term of imprisonment. Any term of imprisonment imposed
for such an offence would be a sentence which is so excessive as
to
shock or outrage contemporary standards of decency.
It must be remembered that the sentence of imprisonment is a
rigorous and severe form of punishment which should be resorted to
only when it is absolutely necessary to do so. As REYNOLDS J said
in S v Ngombe HH-504-87 (unreported) at p 2 of the cyclostyled
judgment:
It has been repeatedly stressed that a sentence of imprisonment is
a rigorous and severe form of punishment, often bearing drastic
and
destructive consequences for the accused and the members of his
immediate family. This form of penalty should be resorted to
only
if absolutely essential in the circumstances of the case, and only if
no other available form of punishment would be preferable
and
appropriate.
In the present case Parliament, by imposing an effective prison
sentence, when other forms of punishment would have been preferable
and appropriate, failed to guard against an excessive devotion to the
cause of deterrence. In that regard it erred.
As GUBBAY JA (as he then was) said in S v Gorogodo 1988 (2)
ZLR 378 (SC) at 382H 383A:
What is to be guarded against is such an excessive devotion to the
cause of deterrence as may so obscure other relevant considerations
as to lead to a punishment which is disparate to the offenders
deserts. I cannot conceive of any principle which can justify,
for
the sake of deterrence and public indignation, the imposition of a
sentence grossly in excess of what, having regard to the crime
and to
the degree of the offenders moral reprehensibility, would be a
fair and just punishment.
In addition, in assessing the appropriate sentence Parliament must
have overlooked or ignored what Bennett had experienced on the
farm
as already set out in this judgment, and the fact that on the day in
question Bennett acted in the heat of the moment and in
response to
severe provocation, factors which greatly reduced Bennetts moral
blameworthiness. Had Parliament taken these factors
into account
and accorded them due weight it would have appreciated that any
effective prison sentence imposed on Bennett would be
grossly
disproportionate to the offence committed by him.
In the circumstances,
it was not surprising that in the heads of argument filed on behalf
of the Attorney-General the concession
was made that the sentence
imposed on Bennett was grossly disproportionate to the offence
committed by him. The relevant paragraph
of the heads of argument
reads as follows:
It is submitted that although Parliament is entitled to commit its
members for contempt, the sentence it pronounced herein is
disproportionate to the offence committed, considering it was
committed in the heat of the moment. See also S v Musa 1997
(2) ZLR 149 (HC) where the court held that committal for 60 days for
contempt of court was retributive and not acceptable.
In addition to that concession, it was conceded in the heads of
argument filed on behalf of the Attorney-General that when Parliament
imposed the prison sentence on Bennett it had voted on party
political lines to impose that sentence. The relevant part of the
heads of argument reads as follows:
Parliament was supposed to exercise its jurisdiction to deal with
contempt in a manner that is not inconsistent with or offensive
to
the Declaration of Rights. It is submitted that the Speaker of
Parliament should have made it clear to Parliament in general
that
they were sitting as a court of record and were supposed to decide
the matter taking into consideration (the) Applicants
rights, and
that they should put politics aside and objectively look into the
matter. This was not done and clearly Parliament
voted along party
lines
The only injustice, if any, that occurred was when the
question of sentence was raised
The proceedings
of the first to
(the) sixth respondent(s) should be declared null in as far as
sentence only is concerned.
In view of the above concessions made on behalf of the
Attorney-General, at the commencement of the hearing of this
application
Mr Gauntlett, who appeared for Bennett, submitted
that it was no longer necessary for this Court to determine all the
other constitutional issues,
raised by Bennett, and that this Court
should simply declare that the sentence imposed on Bennett
contravened s 15(1) of the Constitution,
and order that Bennett be
released from prison.
Mr Chihambakwe, who appeared for the first, second, third
and fourth respondents disagreed and submitted that the sentence
imposed on Bennett was
fair.
Mrs Gatsi, who appeared for the Attorney-General, informed
the Court that she was abiding by the heads of argument she had filed
on behalf
of the Attorney-General. As already stated, it was
conceded in those heads of argument that the sentence imposed on
Bennett contravened
s 15(1) of the Constitution.
The Court then adjourned in order to consider the submissions made
by counsel. Regrettably, the decision of the majority of the
members of this Court was that the Court should hear argument on all
the constitutional issues raised by Bennett.
The hearing of the application was then resumed in the afternoon.
After Mr Gauntlett and Mr de Bourbon had made full
submissions on behalf of Bennett, Mrs Gatsi informed the Court
that she was withdrawing the concessions she had made in the heads of
argument she had filed on behalf of the
Attorney-General. She
stated that she had been instructed to do so by the Director of the
Civil Division of the Attorney-Generals
Office (the Director),
who had previously authorised her to make the concessions. No
reason whatsoever was given for the
Directors instruction. In
the circumstances no valid reason was given to justify the withdrawal
of the concessions.
In my view, and without determining whether a concession made by a
legal practitioner in his/her heads of argument may be withdrawn,
the
failure by Mrs Gatsi to advance any valid reason for the
withdrawal of the concessions must inevitably lead to the conclusion
that no valid reason justifying
the withdrawal of the concessions
existed. That conclusion greatly strengthens the submission made by
Mr Gauntlett that the sentence imposed on Bennett contravened
s 15(1) of the Constitution.
In the circumstances,
I would have granted the application on the basis that the sentence
imposed on Bennett contravened s 15(1)
of the Constitution, and
ordered that Bennett be released from prison on the day the
application was heard, without hearing submissions
on the other
constitutional issues raised by him.
Kantor &
Immerman, appellant's legal practitioners
Chihambakwe. Mutizwa
& Partners, first, second, third and fourth respondents
legal practitioners
Coghlan Welsh &
Guest, fifth respondent's legal practitioners
Honey &
Blanckenberg, sixth respondent's legal practitioners
Civil Division of
the Attorney Generals Office, (intervener)seventh respondent's
legal practitioners