TRANSMUTATION OF KENYA SUPERIOR COURT JURISDICTION: FROM PYRAMIDAL TO HOUR-GLASS JURISDICTIONAL SYSTEM By Hon. Justice (Prof.) James Otieno-Odek, J.A., SJD, EBS Paper presented at the Annual LSK Conference Leisure Lodge, Mombasa, 15th August, 2014 PYRAMIDAL STRUCTURE OF SUPERIOR COURTS SUPREME COURT COURT OF APPEAL HIGH COURT Introduction 1. The Constitution is the constant North that determines the jurisdictional question in Kenya’s legal system. Jurisdiction is everything and without it, a court must lay down its tools. (See Nyarangi J. in Owners of the Motor Vessel “Lillian S” v. Caltex Oil,(Kenya) Ltd [1989] KLR 1). 2. The Supreme Court in the cases of In Re The Matter of the Interim Independent Electoral Commission, S.C., Constitutional Application No. 2 of 2011; [2011] eKLR, and in Samuel Kamau Macharia & Another v. Kenya Commercial Bank Limited & 2 Others, S.C. Application No. 2 of 2012; [2012] eKLR, held that the assumption of jurisdiction by Courts in Kenya, is a subject regulated by the Constitution, statute law, and judicial precedent. It was stated: “A Court’s jurisdiction flows from either the Constitution or legislation or both. Such a Court may not arrogate to itself jurisdiction through the craft of interpretation, or by way of endeavours to discern or interpret the intentions of Parliament, where the wording of legislation is clear and there is no ambiguity”. 3. On 27th August, 2010, a new Constitution was promulgated in Kenya and with it came a new definition of the phrase superior courts. Article 162 (1) of the Constitution defines superior courts as the Supreme Court, the Court of Appeal, the High Court as well as the Land and Environment Courts and the Industrial Courts. Prior to the promulgation of the 2010 Constitution, there was the High Court and the Court of Appeal. Pyramidal structure of Superior Court Jurisdiction in Kenya prior to 27th August 2010 4. The structure of the superior court jurisdiction prior to promulgation of the 2010 Constitution can aptly be described as pyramidal in nature. The penultimate court was the Court of Appeal whose jurisdiction was appellate in nature. For second appeals to the Court of Appeal, the jurisdiction was narrow and limited to points of law. On the other hand, the High Court has always had unlimited original jurisdiction in all civil and criminal matters. The High Court also has an appellate jurisdiction as provided for in the Civil and Criminal Procedure Acts (Caps 21 and 75 of the Laws of Kenya respectively). The combined jurisdiction of the High Court and Court of Appeal can be described as pyramidal in nature. The base of the pyramid represents the unlimited original jurisdiction of the High Court while the apex of the pyramid encapsulated the narrow appellate jurisdiction of the Court of Appeal. 5. Subsequent to the promulgation of the 2010 Constitution and in view of the jurisprudential exposition by the Supreme Court, the jurisdictional competence of the superior courts in Kenya has now metamorphosed into what can aptly be depicted as an hour-glass jurisdictional system with the High Court at the base, the Court of Appeal at the narrow centre and the Supreme Court at the broad apex of the glass. Analysis of the constitutional provisions and the emerging interpretative jurisprudence clearly illustrates the metamorphosis. Normative Jurisdiction of the Superior Courts 6. The following constitutional provisions set the jurisdictional competence of each of the superior courts. (A) Jurisdiction of the Supreme Court Article 163 (3) of the Constitution lays down the jurisdiction of the Supreme Court as follows: a) Exclusive original jurisdiction to hear and determine disputes relating to elections to the office of the President. b) Appeals from Court of Appeal as of right in any case involving the interpretation or application of the Constitution or in any other case in which the Supreme Court or the Court of Appeal certifies that a matter of general public importance is involved. c) The Court has an advisory jurisdiction to given an opinion at the request of the national government, any State organ or any county government with respect to any matter concerning county government. d) Under Section 24(1) of the Supreme Court Act, 2011, “In any proceeding before the Supreme Court, any judge of the Court may make any interlocutory orders and give any interlocutory directions as the judge thinks fit, other than an order or direction that determines the proceeding or disposes of a question or issue before the Court in the proceeding.” e) On the question whether the Supreme Court has the jurisdiction to grant interlocutory orders, and more particularly, orders of stay of execution of decrees issued by other superior Courts; this question was laid to rest in the case of The Board of Governors of Kabarak High School – v- Macolm Bell & Daniel Toroitich arap Moi Sup. Ct. Petitions Nos. 6 and7 of 2013 where it was stated: Where the Supreme Court has appellate jurisdiction derived from the Constitution and the law, it is equally empowered not only to exercise its inherent jurisdiction, but also to make any essential or ancillary orders such as will enable it to sustain its constitutional mandate as the ultimate judicial forum. A typical instance of such exercise of ancillary power is that of safeguarding the character and integrity of the subject-matter of the appeal, pending the resolution of the contested issues. (B) Jurisdiction of the Court of Appeal Article 164 (3) of the Constitution stipulates that the jurisdiction of the Court of Appeal shall be: a) to hear appeals from the High Court and b) any other court or tribunal as prescribed by an Act of Parliament. The Appellate Jurisdiction Act has introduced one qualification for the exercise of the court‘s jurisdiction, that is, that the law must specifically provide for the right of appeal. c) As regards, appeals arising from election petitions, the Court of Appeal is empowered to hear such appeals by dint of section 85A of the Elections Act 2011. d) In Richard Ncharpi Leiyagu v Independent Electoral Boundaries Commission & 2 Others,[2013] eKLR (Civil Appeal No. 18 of 2013) it was stated that a Court of Appeal will not interfere with the exercise of the trial Judge's discretion unless it is satisfied that the Judge in exercising his discretion misdirected himself in some matters and as a result arrived at a wrong decision, or unless it is manifest from the case as a whole that the Judge has been clearly wrong in the exercise of his discretion and that as a result there has been a miscarriage of justice. e) In the case of Maina vs Mugiria, [1983] KLR 78, it is stated that on a second appeal, only matters of law may be taken. If the High Court upholds a resident magistrate on a question of whether or not he exercised his discretion judicially, the issue as to whether he was right or wrong to do so is a question of law. f) The Court of Appeal has an original and discretionary jurisdiction to grant orders for stay under Rule 5 (2) (b) of the Court of Appeal Rules. In Ishmael Kagunyi Thande v Housing Finance of Kenya Ltd Civil Application No. Nai 157 of 2006 the jurisdiction of the Court of Appeal was stated in the following manner: “The jurisdiction of the court under rule 5(2) (b) is not only original but also discretionary.” That the Court of Appeal has original jurisdiction was reiterated by Githinji JA in Equity Bank Limited vs. West Link Mbo Limited Civil Application No. NAI 78 of 2011 wherein he stated that: “It is trite law in dealing with 5(2) (b) applications the Court exercises discretion as a court of first instance. … ; that rule 5(2)(b) is a procedural innovation designed to empower the Court entertain an interlocutory application for preservation of the subject matter of the appeal in order to ensure the just and effective determination of appeals.” In Githinji v Amrit & Another [2004] eKLR it was stated that the principles applicable in an application under rule 5(2) (b) of the Court of Appeal Rules are now well settled. The applicant must demonstrate that he has an arguable appeal which is not frivolous. Secondly, he also needs to show that the result of such appeal, if successful, would be rendered nugatory if the application for stay was refused.” (C) Jurisdiction of the High Court Pursuant to Article 165 (3) of the Constitution, the High Court has the following jurisdiction: a) unlimited original jurisdiction in criminal and civil matters; b) jurisdiction to determine the question whether a right or fundamental freedom in the Bill of Rights has been denied, violated, infringed or threatened; c) jurisdiction to hear an appeal from a decision of a tribunal appointed under the Constitution to consider the removal of a person from office; d) jurisdiction to hear any question respecting the interpretation of the Constitution; e) supervisory jurisdiction over subordinate courts and over any person, body or authority exercising a judicial or quasi-judicial function. f) special jurisdiction in electoral matters to determine any question as to whether a person has been validly elected as a Member of Parliament (Article 105(1)(a) of the Constitution). Hour glass jurisdiction of superior courts 6. The learned Deputy Chief Justice and Vice-President of the Supreme Court, K.H. Rawal in her concurring opinion in Anami Silverse Lisamula v. The Independent Electoral and Boundaries Commission and Two Others, Sup. Ct. Petition No. 9 of 2014 [at paragraph 135] made the observation that the peculiar nature of the Constitution of Kenya, 2010 informs the peculiarity of the Judiciary in the new dispensation, and more so, that of the Supreme Court. 7. In the case of Hon. Lemanken Aramat –v- Harun Meitamei Lempaka, SC Petition No. 5 of 2014,it was stated that the Supreme Court as the penultimate court is not in the more constrained position in which the Court of Appeal had been, at the time of “Lillian S”. The Supreme Court of Kenya: A Substantially-enlarged Jurisdiction under the Constitution of Kenya, 2010 8. The following principles are discernible from the jurisprudence of the Supreme Court particularly as stated in the case of Hon. Lemanken Aramat –vHarunMeitameiLempaka, SC Petition No. 5 of 2014. I. Under the Supreme Court Act, 2011 (Act No. 7 of 2011), the Supreme Court is the formal custodian of the interpretive process for Constitution, and in this context it is not possible to detract from the Supreme Court’s authority to hear and determine all the relevant constitutional questions. II. Kenya’s Constitution directs the Supreme Court to take no rest, until all unsettled issues of its interpretation and application are resolved. III. A question whether a particular Court has the jurisdiction to determine an issue coming up before it, crystallizes in the Supreme Court’s jurisdiction under Article 163(4)(a) and/or (b). The Supreme Court is, thus, required to delve into issues of application or interpretation of the Constitution and, indeed, those of general public importance. Therefore, the Supreme Court cannot close its mind to the evaluation of even a single provision of the law or the Constitution. IV. The Supreme Court’s jurisdiction in relation to electoral disputes is broader than that of the other superior courts. While the Court of Appeal’s jurisdiction is based on Section 85A of the Elections Act, with its prescribed timelines, that of the Supreme Court is broader and is founded on the generic empowerment of Article 163 of the Constitution, which confers an unlimited competence for the interpretation and application of the Constitution; and this, read alongside the Supreme Court Act, 2011 (Act No. 7 of 2011) illuminates the greater charge that is reposed in the Supreme Court, for determining questions of constitutional character. V. Article 163(7) of the Constitution specially empowers Supreme Court to give stewardship to the terms of Constitution, in particular, safeguards for individual rights for the scheme of just redress to all matters in dispute. the the and The VI. Constitution’s prescription is carried further in the Supreme Court Act, 2011 which requires the Court to “assert the supremacy of the Constitution and the sovereignty of the people of Kenya” [Section 3(a)]; to “provide authoritative and impartial interpretation of the Constitution” [Section 3(b)]; and to “develop rich jurisprudence that respects Kenya’s history and traditions and facilitates its social, economic and political growth” [Section 3(c)]. The Supreme Court’s special jurisdiction as the final interpreter of the Constitution entrusts the Court with the responsibility of assuring sanctity to its declared principles. The Court’s mandate in respect of such principles cannot, by its inherent character, be defined in restrictive terms. Questions that come up in the course of dispute settlement especially those related to governance, are intrinsically issues importing the obligation to interpret or apply the Constitution – and consequently, issues falling squarely within the Supreme Court’s mandate under Article 163(4)(1)(a), as well as within the juridical mandate of the Court as prescribed in Article 259(1)(c) of the Constitution, and in Section 3(c) of the Supreme Court Act, 2011 (Act No. 7 of 2011). VII. The Supreme Court’s jurisdiction is not restricted by longstanding conventions (See concurring opinion of Mutunga, C.J. & P. in Jasbir Singh Rai and Three Others v. Tarlochan Singh Rai and Four Others, Sup. Ct. Petition No. 4 of 2012), [paragraph 81]. VIII. The Supreme Court, by virtue of its status as the ultimate Court in the settlement of the course of jurisprudence, holds a crucial place in the determination of questions of ‘pure law’ bearing on matters of public interest. 9. Unlimited appellate jurisdiction of the Supreme Court to interpret the Constitution in historical context I. In Gatirau Peter Munya v. Dickson Mwenda Kithinji & 2 Others S.C. Petition No. 2B of 2014; [2014] eKLR, the Supreme Court stated that Article 87 (1) grants Parliament the latitude to enact legislation to provide for timely resolution of electoral disputes. This provision must be viewed against the country‘s electoral history. II. III. Section 3 of the Supreme Court Act vests the Court inter alia with power to develop rich jurisprudence that respects Kenya‘s history and traditions and facilitates its social, economic and political growth. The Hon. Chief Justice in his concurring opinion in Gatirau Peter Munya v. Dickson Mwenda Kithinji & 2 Others, S.C. Petition No. 2B of 2014; [2014] eKLR citing his dicta In Re the Speaker of the Senate &Another – v- Attorney General & 4 others, (2013) eKLR expressed himself as follows: “In my opinion, this provision (Section 3 of the Supreme Court Act) grants the Supreme Court a near-limitless and substantially elastic interpretative power. It allows the Court to explore interpretative space in the country’s history and memory that, in my view, goes beyond the minds of the framers whose product and appreciation of the history and circumstances of the people of Kenya, may have been constrained by the politics of the moment”. IV. In Hon. Lemanken Aramat –v- Harun Meitamei Lempaka, SC Petition No. 5 of 2014, the Supreme Court observed that issues of merit as may have come up before lower Courts that lacked jurisdiction are not beyond competence and jurisdiction of the Supreme Court. V. The inherently enlarged competence of the Supreme Court is an element not shared with any of the lower Courts. (See concurring opinion of Ojwang SCJ in Anami Silverse Lisamula v. The Independent Electoral and Boundaries Commission and Two Others, Sup. Ct. Petition No. 9 of 2014. VI. It is a responsibility vested in the Supreme Court to interpret the Constitution with finality and the Supreme Court carries the overall responsibility [The Constitution of Kenya, 2010, Article 163(7)] for providing guidance on matters of law for the State’s judicial branch and it follows that its jurisdiction is an enlarged one, enabling it in all situations in which it has been duly moved, to settle the law for the guidance of other Courts. 10. It is not fatal to fail to cite a constitutional provision to invoke the Supreme Court’s jurisdiction In Gatirau Peter Munya v. Dickson Mwenda Kithinji & 2 Others, S.C. Petition No. 2B of 2014; [2014] eKLR, at para. 69; the Supreme Court has held that where specific constitutional provisions cannot be identified as having formed the gist of the cause at the Court of Appeal, the very least an appellant should demonstrate is that the Court’s reasoning, and the conclusions which led to the determination of the issue, put in context, can properly be said to have taken a trajectory of constitutional interpretation or application. 11. New criterion for grant of stay orders – Public Interest to safeguard waste of public resources The emerging jurisprudence from the Supreme Court points to an additional and new criterion for grant of stay orders. (See Mary Wambui Munene v Peter Gichuki King'ara & 2 others. Supreme Court Civil Application No. 12 of 2014; see also Gatirau Peter Munya vs Dickson Mwenda Kithinji& 2 Others, SC Application No. 4 of 2014. The new criterion is whether the grant of stay orders is in public interest. The emerging jurisprudence shows that public interest includes the need to avoid possible waste of public funds. In Gatirau Peter Munya vs Dickson Mwenda Kithinji& 2 Others, SC Application No. 4 of 2014 the Supreme Court expressed itself as follows: …against the background of the public cause, we have focused our perception on the public interest, and the concept of good governance, that runs in tandem with the conscientious deployment of the scarce resources drawn from the public. Proper husbandry over public monetary and other resources, we take judicial notice, is a major challenge to all active institutions and processes of governance; and the Courts, by their established attribute of line- drawing, must ever have an interest in contributing to the safeguarding of such resources. In the case of Zachary Okoth Obado – v- Edward Okongo Oyugi & 2 others, Supreme Court Civil Application No. 7 of 2014, the Supreme Court expressed itself as follows: “As to whether grant of such stay would be in the public interest, we note that the applicant cited the dictum in the Munya case in his submission that public funds are at risk of being expended for an election when there is an impending appeal that has a high probability of success. He asked that this Court safeguards this public interest. If this Court had any doubt as to this argument, our anxieties are allayed by the 2nd respondent’s submission. The 2nd respondent, IEBC, is a constitutional body charged with conducting elections in this Republic. In so doing, it expends public funds. The Constitution decrees under Article 201(d) of the Constitution that public money shall be used in a prudent and responsible manner. The IEBC has cited cases where it had expended public funds to prepare for elections that finally never materialized, because of the outcome of Court decisions. There can be no better reason for grant of stay than in this case where the IEBC itself is calling out loud for grant of stay so as to safeguard public funds”. 12. Conclusion: Unlimited Appellate Jurisdiction of the Supreme Court The emerging jurisprudence from the Supreme Court and the doctrine of stare decisis depicts a fundamental metamorphosis of the jurisdictional competence of the superior courts in Kenya from pyramidal to an hour-glass jurisdictional structure. The current thread and trend in the jurisprudence leads one to conclude that the Supreme Court has evolved to become a Court with unlimited appellate jurisdiction coupled with powers to interpret history and make determinations on un-pleaded issues. The difference between the High Court and the Supreme Court is that the High Court has unlimited original jurisdiction while the Supreme Court has unlimited appellate jurisdiction. The word “original” is the distinguishing factor and for the High Court it implies the power to receive evidence and consider facts in the first instance. For the Supreme Court, the power to receive evidence in the first instance is lacking except in Presidential Petitions where it has original and exclusive jurisdiction. A litigant has no locus standi to directly file suit before the Supreme Court unless he/she is seeking an advisory opinion. A litigant who wants to benefit from the substantially enlarged unlimited appellate jurisdiction of the Supreme Court must first litigate before the Court of Appeal. The Court of Appeal has a significant role to play in evaluating and narrowing down the legal issues for consideration by the Supreme Court. The Hon. Chief Justice aptly captures the transformation of the superior court jurisdictional competence when he stated In Re The Speaker of the Senate & another – v- Attorney General & 4 Others, (2013) eKLR that the Supreme Court has a near-limitless and substantially elastic interpretative power… that, goes beyond the minds of the framers of the Constitution. In so far as the jurisdictional competence of the Supreme Court is concerned, the era of the “Lillian S” case is over – the Supreme Court as the penultimate court is not in the more constrained position in which the Court of Appeal had been, at the time of “Lillian S”. THE CONCEPT OF CIVILISED NATIONS AND DISOBEDIENCE TO COURT ORDERS 13. Introduction In the case of Hadkinson – v- Hadkinson, (1952) 2 All ER 211, it was stated that it is a plain and unqualified obligation of every person against or in respect of whom an order is made by a court of competent jurisdiction, to obey it unless and until that order is discharged. The uncompromising nature of this obligation is shown by the fact that it extends even to cases where the person affected by an order believes it to be irregular or even void. A party who knows of an order, whether null and void, regular or irregular cannot be permitted to disobey it. The validity of a court order is not to be tested by litigants or the person to whom it is served. It would be dangerous if parties would start to judge whether an order was null and void, regular or irregular. 14. Pacific and Forcible resolution of disputes In every society, differences in opinion, perspectives and disputes are bound to arise. Even in a marriage, one ofthe guarantees to a successful and long lasting marriage is the ability of two different people to amicable resolve their differences. There are two ways of resolving disputes: by use of force or peacefully. Use of force to resolve disputes are short term and sow the seed for future dispute and cyclical use of force. Use of force is premised on the concept of might is right. The grievance of the subjugated party is neither addressed nor resolved; it is buried and simmers; the routed party resorts to measures that will enable it to acquire force and alter the balance of power. On the other hand, peaceful settlement of disputes addresses the grievances of both parties. Peaceful settlement of disputes is a process through which the balance of rights and obligations are restored. 15. Role of Court orders in civil, economic, social and political stability When a public officer or any person promotes disobedience to court orders, that person does not understand the role of the courts in socio-economic and political stability of a country. Disobedience to court orders is recipe for anarchy and breakdown in the rule of law, it encourages citizens to take the law into their hands; it whittles down the confidence of the citizenry in the judicial system. The absence of an effective judiciary is one of the indicators of a failed state. Arbitral and judicial systems is the cornerstone for peaceful or pacific settlement of disputes. One of the attributes of a civilized society is the ability to generally resolve dispute in a peaceful manner. The legitimacy of the judicial system is derived from sovereignty and acceptance of its decisions by the disputants. In a national context, the legitimacy of the judicial system stems from the constitutional order and deference to court orders. Disobedience of court orders undermines the legitimacy and dignity of the courts. There is a direct and linear relationship between disobedience to court orders and impunity which progresses into social and political instability that culminates into breakdown in the rule of law. He who disobeys a court order is courting anarchy, civil disobedience, social and political instability and promotes economic uncertainty because rights as determined by the courts cannot be enforced. In other words, disobedience to court order promotes the adage that let every man take the law into his/her own hands; and ultimately might is right. 16. Separation of powers and disobedience to court orders Disobedience to court orders has been anchored on the concept of separation of powers. In the Mumo Matemu case – v- Trusted Society of Human Rights Alliance, (2013) eKLR, the Court of Appeal stated that separation of powers does not proscribe organs of government from interfering with the other’s functions. It also entails empowering each organ of government with countervailing powers which provide check and balances on action taken by other organs. The Supreme Court in the case of Speaker of National Assembly –v- Attorney General & 3 Others, (2013) eKLR stated: “Parliament must operate under the Constitution which is the supreme law of the land…Where the Constitution decrees a specific procedure to be followed …both houses of Parliament are bound to follow that procedure. If Parliament violates the procedural requirements of the supreme law of the land, it is for the courts of law, not least the Supreme Court to assert the authority and supremacy of the Constitution. It would be different if the procedure in question were not constitutionally mandated. This Court would be averse to questioning Parliamentary procedures”. 17. Personal service and disobedience to court orders In Basil Criticos – v- Attorney General & 8 Others, (2012) eKLR, and in Kenya Tea Growers Association – v – Francis Atwoli & 5 Others, Petition No. 64 of 2010, it was stated that where a party clearly acts and shows that he had knowledge of a court order, the strict requirement that personal service must be proved is rendered unnecessary. In Hadkinson – vHadkinson, (1952) 2 All ER 211 it was stated that a party who knows of an order, whether null and void, regular or irregular cannot be permitted to disobey it. 18. Nullity of actions done in disobedience to court orders In Clarke & Others - v – Chadburn & Others,(1985) 1 All ER 211, it was emphasized that an act done in willful disobedience of a court order was not only contempt of court but also an illegal and invalid act which cannot not effect any change in the rights and liabilities of others. An act done in disobedience of a court order is null and void ab initio and is a nullity in law. 19. Civil and criminal measures to enforce obedience to court orders Contempt of court is the traditional mechanism to ensure compliance with court orders. Contempt of court refers to actions which defy a court's authority, cast disrespect on a court, or impede the ability of the court to perform its function. Contempt of court may be "direct" or "indirect". Direct contempt occurs in the presence of the court - during a court proceeding, for example. Indirect contempt occurs outside the presence of the court. Contempt takes two forms: criminal contempt and civil contempt. Actions that one might normally associate with the phrase "contempt of court," such as a party causing a serious disruption in the courtroom, yelling at the judge, or refusing to testify would often constitute criminal contempt of court. Civil contempt of court most often happens when someone fails to adhere to an order from the court, with resulting injury to a private party's rights. Sections 96 and 131 of the Penal Code (Cap 63 of the Laws of Kenya) espouse provisions that enforce obedience to court orders and promote the dignity of the courts. Section 96 of the Penal Code provides that any person who, without lawful excuse, the burden of proof whereof shall lie upon him, utters, prints or publishes any words, or does any act or thing, indicating or implying that it is or might be desirable to do, or omit to do, any act the doing or omission of which is calculated— (a) (b) (c) …… … to prevent or defeat by violence or by other unlawful means the execution or enforcement of any written law or to lead to defiance or disobedience of any such law, or of any lawful authority, is guilty of an offence and is liable to imprisonment for a term not exceeding five years. Section 131 of the Penal Code provides that everyone who disobeys any order, warrant or command duly made, issued or given by any court, officer or any person acting in any public capacity and duly authorized in that behalf, is guilty of a misdemeanour and is liable, unless any other penalty or mode of proceeding is expressly prescribed in respect of the disobedience, to imprisonment for two years. ……. END ……
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