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SUMMARY OF FACTS
1. The Communication is submitted by the Zimbabwe Lawyers for Human Rights
and the Institute for Human Rights and Development in Africa (the
Complainants) on behalf of Mr. Andrew Barclay Meldrum (the victim). It
alleges that Mr. Meldrum's rights of freedom of expression and freedom to
disseminate information were violated by the Republic of Zimbabwe (the
Respondent).
2. It is stated by the Complainants that Mr. Andrew Barclay Meldrum's an
America citizen was legally admitted into Zimbabwe in October 1980 and
settled permanently until 2003 when he was deported. It is alleged that the
Ministry of Home Affairs of Zimbabwe on 10 February 1980 issued Mr. Meldrum
with a permanent residence permit which allowed him to work as a journalist
and since then he has been a foreign correspondent for the Mail and Guardian,
a paper published in the United Kingdom.
3. The Complainants state that on 7 May 2002, Mr. Meldrum published an
article in the Daily News (an independent paper that has been closed by the
Respondent State) on the internet version of the Mail and Guardian. As a
result of the publication, the Complainants claim Mr. Meldrum was charged
with "publishing falsehood" under section 80 (1) (b) of the Access to
Information and Protection of Privacy Act, (AIPPA). Mr. Meldrum was found
not guilty on 15 July 2002. The complainants state that on 7 May 2003, the
Supreme Court of Zimbabwe declared section 80 (1) (b) of the AIPPA
unconstitutional in the case of Lloyd Zvakavpano Mudiwa v The State.
4. It is further alleged that immediately after his acquittal, Mr. Meldrum
was requested to report to the Immigrations Department Investigations Unit
and was served with a deportation order issued in terms of section 14 (i)g
of the Immigrations Act. Mr. Meldrum appealed the deportation order within
24 hours to the Ministry of Home Affairs as required by the Immigrations Act.
Meanwhile, an application challenging the deportation order was filed by his
lawyers in the High Court. On 17 July 2002, the High Court ordered that Mr.
Meldrum should be allowed to stay in the country until the Supreme Court had
dealt with all the constitutional matters raised in the matter.
5. The Complainants, allege further that on 16 May 2003, Mr. Meldrum was
summoned to the Immigration Department where he was informed that he could
no longer work as a journalist. He was informed that he had not been
accredited in terms of the Access to Information and Protection of Privacy
Act. Mr. Meldrum informed the immigration authorities that he had filed an
application to the Supreme Court and pending the outcome he should be
allowed to practice journalism as provided by the Act. The Immigration
authorities then informed him that they had a deportation order issued by
the Ministry of Home Affairs which empowered them to deport him forthwith
without disclosing the reason for the deportation. Mr. Meldrum was then
forced into a car and taken to the airport.
6. They claim that an urgent appeal was filed in the High Court to interdict
the deportation order and to compel the State to bring Mr. Meldrum before
the High Court by 15:30hrs that same day. But at 15:30hrs, the State Counsel
appeared in court without Mr. Meldrum. The High Court gave another order
prohibiting the State from deporting Mr. Meldrum. At about 20:00hrs, the
State Counsel informed the Court that Mr. Meldrum could not be located. The
High Court issued another order for the release of Mr. Meldrum and this
order was served on the immigration authorities by Mr. Meldrum's lawyer who
had to drive to the airport for that purpose. In spite all these efforts and
Court orders, the State defiantly deported Mr. Meldrum.
COMPLAINANT
7. The Complainants allege that the Respondent State has violated articles
2, 3, 7 (1a) (b), 9, 12(4), and 26 of the African Charter on Human and
People's Rights.
PROCEDURE
8. The complaint was received at the Secretariat of the African Commission
on 6 October 2004.
9. On 12 October 2004, the Secretariat wrote to the Complainants
acknowledging receipt of the complaint and informing them that it will be
considered at the Commission's 36th Ordinary Session.
10. On 13 December 2004, the Secretariat wrote a letter to inform Parties
that at its 36th Ordinary Session held from 23 November to 7 December 2004,
in Dakar, Senegal, the African Commission considered the above mentioned
Communication and decided to be seized thereof.
11. On 3 February 2005, the Complainants transmitted their arguments on
admissibility.
12. On 22 February 2005, the Secretariat acknowledged receipt of the
Complainants' arguments on admissibility and inform them that the
Communication will be considered on admissibility at the 37th Ordinary
Session of the African Commission scheduled to take place from 27 April to
11 May 2005 in Banjul, The Gambia.
13. The Secretariat of the African Commission wrote a Note Verbal to the
Respondent State transmitting Complainants' submissions on admissibility and
reminding the Respondent State that the Secretariat is yet to receive their
submission on admissibility.
14. A fax message was received by the Secretariat on 14 March 2005, from the
Respondent State requesting a postponement of consideration of the
Communication on admissibility to the 38th Ordinary Session.
15. The Secretariat acknowledged receipt of the above mentioned fax and
forwarded the decision of the 36th Ordinary Session of the African
Commission to the Ministry of Foreign Affairs by Note Verbales dated 13
December 2004 and urged the Respondent State to submit on admissibility so
that a decision could be taken at the next session of the African Commission.
16. In this respect, the Secretariat requested the Respondent State if they
could make their submissions on admissibility with respect of all pending
Communications by 18 April 2005. The Secretariat also asked the Respondent
State to inform it whether the government of Zimbabwe would like to make
oral submissions, so that it can advise the Complainants and the Members of
the Commission accordingly.
17. During its 37th Ordinary Session, held from 27 April to 11 May 2005, in
Banjul, The Gambia, the African Commission considered the said communication
and deferred consideration thereof to its 38th Ordinary Session pending the
Respondent State's submissions of its arguments on admissibility.
18. On 24 May 2005, the Secretariat informed both parties about the
Commission's decision. The Secretariat also reminded the Respondent State
that it had not submitted its submissions on admissibility requested it to
do so before 15 October 2005 so that the Commission could decide on the
admissibility at its forthcoming session.
19. On 13 October 2005, the Secretariat reminded to the Respondent State to
submit its argument on admissibility, for consideration during the 38th
Ordinary Session to be held from 21 November to 05 December 2005 in Banjul,
The Gambia.
20. On 31 October 2005, the Respondent State informed the Secretariat that
the transmission of its submissions would be slightly delayed.
21. During the 38th Ordinary Session, the Respondent State finally submitted
its arguments on admissibility.
22. On 14 December 2005, the Secretariat wrote to both parties informing
them that at its 38th Ordinary Session held from 21 November to 05 December
2005, in Banjul, The Gambia, the African Commission considered the
Communication and declared it admissible.
23. The Secretariat also informed both parties that the African Commission
would consider the Communication on the merits at its forthcoming session,
and requested them to forward their arguments on the same.
24. On 04 April 2006, the Secretariat sent a reminder to both parties to
submit their arguments on the merits.
25. On 26 July 2006, the Secretariat wrote to both parties informing them
that, at its 39th Ordinary Session held from 11 – 25 May 2006, in Banjul,
The Gambia, the African Commission considered the Communication and decided
to defer its decision on the merits at its 40th Ordinary Session to be held
from 15 – 29 November 2006 in Banjul – The Gambia.
26. On 3 November 2006, the Secretariat wrote a reminder to the Respondent
State to request its submissions on the merits of the case, as soon as
possible.
27. On 26 November 2006, the Secretariat received the Complainant's
submissions on the merits and the Secretariat was informed that the
Respondent State has been duly served a copy of the submission.
28. On 08 December 2006, the Secretariat informed both parties that at its
40th Ordinary Session held from 15-29 November 2006 in Banjul-The Gambia,
the African Commission considered the Communication and decided to defer its
decision on the merits to its 41st Ordinary Session scheduled from 16-30 May
2007 in Ghana, in order to allow the Respondent State to submit its
arguments on the merits.
29. The Secretariat of the African Commission wrote a reminder to the
Respondent State to submit its arguments on the merits before 10 of May so
that the Commission could take a decision at its 41st Ordinary session.
30. At its 41st Ordinary session held in Accra-Ghana from 16 to 30 May 2007,
the African Commission considered the Communication and decided to defer its
decision on the merits to its 42nd Ordinary Session, in order to receive the
Respondent State's arguments.
31. The Secretariat wrote reminders on 25 June 2007, and, on 25 September
2007 to the Respondent State to submit the requested arguments on merits
latest by 15 October 2007 for consideration during the 42nd Ordinary Session
held from 14 to 28 November 2007
32. On 19 December 2007, the Secretariat wrote to inform both parties that
at its 42nd Ordinary Session held from 15 to 28 November 2007 in Brazzaville,
Congo, the African Commission considered the Communication and decided to
defer its decision on the merits to its 43rd Ordinary Session, in order to
receive the Respondent State's arguments.
33. On 19 March 2008, the Secretariat informed both parties about the
decision and reminded the Respondent State to submit its arguments on the
merits in order to allow the Commission to take a decision on the matter.
34. At its 43rd Ordinary Session, the Commission considered the
Communication and decided to defer its decision on the merits to its 44th
Ordinary Session.
35. At its 44th Ordinary Session held from 10 – 24 November 2008, in Abuja,
Nigeria, the African Commission deferred consideration of the Communication
due to lack of time.
DECISION ON ADMISSIBILITY
THE COMPLAINANT'S ARGUMENTS
36. The Complainant had argued the complaint had complied with Article 56
(3), because the information was based on court records and affidavits.
37. Regarding Article 56 (5), the Complainants submit that the victim was
not given the opportunity to exhaust the local remedies that were available
to him, and that the High Court had ordered on many instances that he be
allowed to stay in the country until a decision was made on the
constitutional issues, which he had been raised in an application pending
before the Supreme Court. Complainants submit that in terms of Section 24 of
the Zimbabwe Constitution, any issues that pertain to the Zimbabwean Bill of
Rights are referred to the Supreme Court, as the court of first instance on
alleged case of human rights infringements. They argue that the deportation
of the victim by the Immigration Department was in contempt of court orders,
which had stayed his deportation.
38. That the victim could not have pursued any other remedies other than
approach the courts for a vindication of his rights. They argue that the
fact that he was given an opportunity on one occasion to appeal to the
Minister of Home Affairs, who is responsible for immigration, does not at
all prove the availability and effectiveness of local remedies, since the
decision of the Minister 'is and was more of a review by a quasi judicial
individual government official or functionary, who is not obliged to make
considerations in accordance with legal rules which in all fairness takes
away the very principles of natural justice and due process of the law (sic)which
are covered under Article 7 of the Charter'.
39. The Complainants further argue that the Commission has ruled that only
remedies of a judicial nature are considered to be effective remedies for
acts of human rights violations. This, they rely on the Commission's
decision in the Constitutional Rights Project vs. Nigeria where the
commission ruled that:
"the Civil Disturbances Act empowers the Armed Forces Ruling Council to
confirm the penalties of the Tribunal. This power is a discretionary,
extraordinary remedy of a non-judicial nature. The object of the remedy is
to obtain a favour and not to vindicate a right. It would be improper to
insist on the complaint seeking remedies from a source, which does not
operate impartially and have no obligation to decide according to legal
principles. The remedy is neither adequate nor effective"
40. The Complainants added that in the Constitutional Rights Projects Case (supra)
the Commission stated further that the types of remedies that existed were
of a nature that did not require exhaustion according to Article 56(5).
41. It is also alleged that the victim was ordered to make representations
to the Minister of Home Affairs on why he should not be deported after being
served with his deportation order. The exhaustion of local remedies in this
case would fall away as the Minister of Home Affairs being the person
responsible for the Immigration Department, the state arm which was
responsible for infringing on his rights, could not in any way proffer an
effective remedy, the Complainants assert.
42. The Complainants submit that when the victim sought judicial protection
of his rights, the Immigration Department deported him regardless of the
court orders, which stayed his deportation, adding that the practice by the
Respondent State to disobey courts orders has made it a senseless for an
aggrieved party to seek or obtain any form of remedy.
43. The Complainants therefore argue that, 'one can safely conclude that the
failure by the government of Zimbabwe to respect court orders thereby
denying local remedies to victims of human rights violations amounts to
constructive exhaustion of local remedies'.[FN1]
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[FN1] As was established in the cases of Godinez Cruz vs. Honduras (Inter-America
Court on Human Rights Series C No. 5 at 69, Jon D Ouko vs. Kenya (ACHPR
Decision 232/1999) and Rencontre Africaine pour la Defense des Droits de
l'Homme vs. Zambia (ACHPR Decision 71/92.
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44. The Complainants urged the Commission to draw inspiration from the
Inter- American Court decision on the same principle, which states as
follows; "...when remedies are denied for trivial reasons or without
examination on merits, or if there is proof of the existence of a practice
or policy tolerated by the government, the effect of which is to impede
persons from invoking internal remedies that would normally be available to
others, resort to such remedies becomes a senseless formality."
RESPONDENT STATE'S ARGUMENTS
45. The Respondent State relies on two grounds:
Disparaging language (Article 56(3))
46. The Respondent State submits that the language used in the Communication
is disparaging to the Republic of Zimbabwe, in particular, the Department of
Immigration in Zimbabwe and, as such, the Communication should be considered
inadmissible. The Respondent State claims that the language used to describe
the deportation and events preceding the deportation of the Complainant
expose the State and the Department of Immigration of Zimbabwe to
unnecessary ridicule. It argues that international attention garnered by the
Land Reform Programme, is exacerbated by such disparaging statements are,
among other things, that there is no rule of law in Zimbabwe, court orders
are not enforced and crimes against humanity are committed by high ranking
State Officials.
Exhaustion of local remedies (Article 56(5))
47. Concerning Article 56(5), the Respondent State submits that the
Complainants have not attempted to exhaust local remedies and, as such, the
Communication should be considered inadmissible. According to the Respondent
State, the victim, while still resident in the Republic of Zimbabwe,
approached the local courts on a number of occasions seeking redress. The
State argues that the victim does not, however, need to be physically in
Zimbabwe in order to avail himself of available domestic remedies. That he
can instruct his lawyers from wherever he is and the relevant action can be
done through his lawyers. The State argues further that his lawyers could,
for instance, make issue of the alleged contempt of court by Immigration
Officials, and also push for the revocation of the deportation order and
subsequent reinstatement of the victim's residence permit.
48. Consequently, the Respondent State argues that the Communication does
not meet the requirements of Article 56(3) and 56(5) and should be declared
inadmissible.
49. During its oral submission, the Respondent State submitted that
following discussions with the Complainants, it decided to abandon its
argument of disparaging language, but maintains the issue of non exhaustion
of local remedies.
DECISION
50. When the parties made oral submissions before the Commission, the
Respondent State submitted that, it had decided to abandon the argument on
disparaging language but maintained the grounds on issue of non exhaustion
of local remedies. The Commission takes note of that submission, and would
not make a ruling on article 56 (3) since the parties are not at issue on
the question of disparaging language.
51. Both parties made submissions on Article 56(5) regarding the question of
non-exhaustion of local remedies. The Commission has stated in previous
decisions, (see paragraph 39 above) that the principle of exhaustion of
domestic remedies, presupposes existence of effective judicial remedies.
Administrative or quasi judicial remedies which do not operate impartially
are considered as inadequate and ineffective. The Respondent State argues
that the victim did not exhaust domestic remedies. It argues that, the mere
fact that the victim was outside the country could not stop the victim
instructing lawyers to approach the courts on his behalf. i.e.; the victim
did not require or need to be inside the country to access the domestic
remedy. The Respondent state submitted further that the victim could have
initiated contempt proceedings.
52. The Complainants submitted at length on the non applicability of Article
56(5) and argued in favour of invoking the principle of constructive
exhaustion of local remedies. In summary, they submit that the disregard by
the Respondent State of various court orders prior to, and coupled with, the
deportation of the victim, denied him the opportunity to exhaust local
remedies. Secondly they submit that there were no domestic remedies to
exhaust, since the judicial remedies had proved ineffective. The appeal to
the Minister was a non judicial remedy, for purposes of addressing human
rights violation. Such a remedy does not fall within the scope of Article
56(5), it failed to comply with rules of natural justice. In any case it was
the Minister who had ordered the deportation, thus he could not be expected
to proffer any remedy to the victim.
53. The Commission agrees with the Complainants' arguments. The Commission
is of the firm view that immigration officials of the Respondent State had
no basis in law to disregard court orders. The complainants referred the
Commission to the Cordinez Cruz decision, on constructive exhaustion of
local remedies. The Commission has looked at the decision in terms of
Article 60 of the Charter and finds it very persuasive. The Commission has
previously applied this principle too, where the Complainant or victim is
impeded from exhaustion of domestic remedies through the conduct of the
Respondent State.
54. The deportation of the victim in the case under consideration had been
effected in the face of several High Court orders, the Commission finds that
to require the victim to pursue further judicial remedies, when all efforts
at seeking judicial remedies had been frustrated and ignored by the
Respondent State, would have amounted to a "senseless formality" in the true
meaning of the words. The remedy which would have granted protection to Mr
Meldrum, namely the application pending in the Supreme Court, was considered
by the Respondents State's immigration officials, as "trivial" and of no
legal consequence. The Respondent State had notice of the pending
application in the Supreme Court, and yet effected the deportation. It
actively participated in impeding the victim from accessing the remedy.
55. The Commission therefore holds that the conduct of the Respondent State
brings this Communication within the scope of constructive exhaustion of
remedies principle. By accepting the applicability of the principle of
constructive exhaustion of domestic remedies in this case, the Commission
distinguishes this case from its decision in Communication 219/98 Legal
Defence Centre/Gambia [FN2] in which it declared the communication
inadmissible for failure by a deportee to exhaust local remedies, since the
circumstances were not similar.
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[FN2] Communication No 219/98, The Legal Defence Centre/The Gambia,, the
victim, one Mr Sule Musa was deported by the Gambian authorities to Nigeria.
The Commission sought clarification during its 25th Ordinary Session,
whether the Complainant could have recourse to domestic remedies, to which
no response was received. The Commission declared the Communication
inadmissible, observing that; "...the victim does not have to be physically
present in a country to avail himself of available domestic remedies, such
could be done by his counsel... ...Rather than approach the Commission first,
the complainant ought to have exhausted available local remedies in the
Gambia...".(emphasis added) It must be stated here that the distinguishing
factor relied by the Commission in he Zimbabwe case is the role played by
the State in impeding access to the local remedies available.
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56. The decision in the Legal Defence Centre is distinguishable because in
that case, no effort was made to exhaust domestic remedies. In the case
under consideration, the Respondent State was actively engaged in
frustrating the restraint orders obtained from the domestic court. The
Commission is aware that its decisions on admissibility must be based on the
criteria under Article 56, it must however reiterate that States Parties are
obliged to respect their obligation to guarantee the independence of the
judiciary under Article 26 of the Charter. It is the view of the Commission
that Article 56(5) must be read in the context of the Article 26 of the
Charter. A State which ignores its duty to guarantee an independent
judiciary fails to provide effective remedies to human rights violations,
and thereby undermines the protection of human rights under the Charter.
57. On these grounds, the African Commission declares the Communication
admissible.
DECISION ON THE MERITS
COMPLAINANT'S SUBMISSIONS
58. The Complainants allege the violations of Articles 2, 3 (1) and (2), 7
(a), 9, 12 (4) and 26 of the African Charter.
59. Concerning alleged violations of Articles 2 and 3 of the Charter, the
Complainants submitted that the deportation of Mr. Meldrum was based on
vague and unsubstantiated reasons of a danger to public order, national
security and breach of his work permit.
60. The Complainants state that the allegations against Mr. Meldrum were
never proven in the domestic courts, but the Respondent State proceeded to
deport him despite numerous High Court orders that he should not be deported,
until the constitutional application for stay of deportation had been heard.
61. The Complainants allege that the act of deportation constituted an
unfettered exercise of discretion by the Chief immigration Officer, which
was tantamount to indiscriminate action by state authorities and violated
the right equality before the law, therefore it is a violation of Article 2
of the Charter.
62. The Complainants conclude that the deportation of Mr. Meldrum was not in
anyway motivated by the desire to promote peace and security, neither was it
to accomplish a given pressing social need, it was to physically censor him
from disseminating information within Zimbabwe.
63. The Complainants recall the jurisprudence of the Commission dealing with
cases of expulsion of non-nationals from State Parties to the Charter, in
which concluded that deporting non-nationals without providing them the
opportunity to challenge their deportation before the courts, constitute
discrimination and inequality before the law. Article 2 of the Charter
obligates State parties to ensure that persons living in their territory, be
they nationals or non nationals, enjoy the rights guaranteed in the Charter
[FN3].
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[FN3] Union Interafricaine des Droits de l'Homme and Others vs. Angola
(2000) AHRLR 18 (ACHPR 1997) at paragraph 18.
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64. The Complainants argued that Mr. Andrew Meldrum was arrested and charged
under the Access to information and Protection of Privacy Act (AIPPA), but
the charges against him were subsequently dismissed in court, and the State
never appealed. Further, the sections of the Act which were deemed to have
breached were subsequently struck off and declared unconstitutional.
65. The Complainants submit that, in essence, the deportation of Mr. Andrew
Meldrum is unfounded at law.
66. Concerning Article 7 (1) (a) and (b), the Complainants note that the
failure to by the Respondent State to obey court judgments or orders
constitute a violation of the Charter and breach the duty and right to have
independent and competent tribunals and courts mandated with the protection
of rights as provided in the Charter.
67. The Complainants submit further that the deportation order was a
violation of the presumption of innocence which is a doctrine well founded
under the principles of natural justice as it gives an accused person the
opportunity to have his cause heard by an organ competent to determine such
guilt or innocence.
68. They argue that, when an individual, who has a vested interest in the
matter, acts contrary to principles of natural justice, and becomes the
first and last institution of appeal, then decision of such an individual
would be a violation of the Charter, in particular Article 7 (1) (a) and
(b).
69. The Complainants emphasize that the Access to Information and Protection
of Privacy Act allows journalists to practice for six months whilst their
accreditation applications were pending, and Mr. Meldrum was still within
the transitional reprieve period and was, in terms of the Act, allowed to
work as a journalist while his application was pending.
70. The Complainants note further that the free practice of the profession
of journalism and freedom of expression ought to be interpreted to include
freedom to impart and receive information, and this was abrogated by the
Respondent State.
71. It is alleged by the Complainants that Mr. Meldrum had been charged for
publication of falsehoods, charges he was acquitted of in the Magistrates
Court, against which the State never appealed. They state further that the
same provision of AIPPA under which Mr Meldrum charged, was declared
unconstitutional by the Supreme Court.[FN4] The Complainants submit that the
only way for the Respondent State to deter Mr. Meldrum from the free
practice of his profession was to physically censor him through an arbitrary
act of deportation.
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[FN4] See paragraph 3 (supra)
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72. The Complainants consider that the response of the State to perceived,
real or illicit threats to national security, public order was
disproportionate to the threat, if any, posed by the writings of Mr. Meldrum.
73. Referring to Article 12 (4), the Complainants affirm that non-nationals
admitted in any State Party to the Charter should enjoy the same rights
entitled to nationals. Thus, according to the Complainants, the expulsion of
Mr. Meldrum did not satisfy the provisions of the Charter as it was
arbitrary in so far as it was improper, disproportionate and contrary to the
law and the principles of natural justice.
74. Recalling the restriction on fundamental rights guaranteed by the
Charter, the Complainants affirm that the limitations are founded where the
drafters of the Charter include clawback provisions such as "in accordance
with the law", "abides by the law", "within the law" and more clearly stated
under Article 27 (2).
75. Relying on the principles of necessity and proportionality and referring
to international jurisprudence, the Complainants submit that the act of
restriction of a right must not be arbitrary, unfair or based on irrational
considerations, but must be rationally connected to the objective, and
should not impair the right or freedom in question more than is necessary to
accomplish a given objective or a pressing social need.
76. Further, the Complainants argue that several international human rights
instruments to which Zimbabwe is a party recognize the importance of
non-discrimination in the pursuit and enjoyment of human rights by nationals
and non-nationals. The Complainants also submit that the deportation of Mr.
Meldrum was in violation of Article 26, read together with Article 7 of the
Charter. According to the Complainants, Article 7 as has been ruled by the
Commission gives meaning to the individual right, whilst Article 26
emphasizes on the importance of institutions which give effect to the right
in Article 7.
77. The Complainants argue that Mr. Meldrum was deported while his case was
yet to be heard by the Supreme Court sitting as a constitutional court, thus
rendering the right to appeal in this instance illusory. The Complainants
submit that the Respondent State, through various organs had defied court
orders and allowed such actions to become "acceptable standard of deviation"
from enforcing rights guaranteed in the Charter.
78. The Complainants submit that Article 26 of the Charter was violated by
pointing to the wanton disregard of court orders by the Respondent State and
non-state entitles as clear evidence of the non-existence of the rule of law,
principles of natural justice, and presumption of innocence. For the
Complainants, these latest principles are elementary indicators of the
existence of a proper functioning judiciary, an executive which operates
within the law, and a legislature which appreciates the essence of
separation of powers.
79. The Complainants argued that the actions of the Respondent State were a
violation of Article 9 (1) and (2) of the Charter, which provides for
freedom of expression, and the right to receive and impart information. They
claim that the deportation of Mr. Meldrum deprived him of his rights, as
well as denying the general citizenry their rights to receive information.
80. The Complainants recall that the restrictions on freedom of expression
under international law have been examined under various tests of necessity,
proportionality and achievement of a legitimate objective, and request the
Commission to apply the same tests to the present Communication.
RESPONDENT STATE'S SUBMISSION
81. The Respondent State did not formally submit its arguments on the merits
in spite of several reminders. However, it should be noted that in its
submission on admissibility dated 16 November 2005, the Respondent State
also made arguments relating to the merits of the Communication. The African
Commission here below summarizes those arguments and consider them as the
State's submissions on the merits of the present Communication.
82. In relation to the alleged violation of Article 2, the Respondent State
denies that the victim's right to equality before the law was violated. The
State submits that the Complainant faced deportation because of alleged
violations of the terms of his Residence Permit which entitled him to stay
in Zimbabwe. According to the State, it is wrong to suggest that Mr
Meldrum's right to equality before the law was violated because of his
opinion and/or origin.
83. Concerning Article 3, the Respondent State submits that the victim was
afforded protection of the law, adding that it is on record that the victim
approached local courts in Zimbabwe at least four times prior to his
deportation and that the matters were given due consideration.
84. With regards to the alleged violation of Article 7, the Respondent State
submits that the victim was not denied his right to appeal. The State argues
that he made an application to the High Court which, in turn, was referred
to the Supreme Court, noting that the issues were still pending before the
Supreme Court at the time the victim left for the United Kingdom. The
Respondent State argues that the complainant was at liberty to approach the
courts, whenever he deemed it necessary to do so.
85. Concerning Article 9, the Respondent State submits that while the right
to freedom of expression is enshrined in the Constitution of Zimbabwe and
contained in Article 9 of the African Charter, it would be inappropriate for
the victim to seek to enforce that right by way of publishing falsehoods.
Moreover, the State avers, publications of falsehoods are in direct
contravention of the Access to Information and Protection of Privacy Act (AIPPA).
86. On the alleged violation of Article 12(4), the Respondent State submits
that Immigration Officials responsible for Mr. Meldrum's deportation were
guided by Section 14(1)(g) of the Immigration Act. Under this law, the State
argues, Mr. Meldrum was declared a prohibited immigrant and the Chief
Immigration Officer revoked his Residence Permit in terms of Section 20(2)
of Statutory Instrument 195 of 1998. The decision to deport Mr. Meldrum,
according to the Respondent State, cannot therefore be considered as outside
of the provisions of the law as it was made by the Chief Immigration Officer
who was acting within the purview of the law governing the deportation of
non-nationals, namely the Immigration Act.
87. Concerning Article 26, the Respondent offers no argument in response to
allegations made by the Complainant.
DECISION OF THE COMMISSION ON THE MERITS
ALLEGED VIOLATION OF ARTICLES 2 AND 3
88. The Commission has considered the submissions of both parties regarding
the alleged violations of the African Charter.
89. With respect to the alleged violation of Article 2 of the African
Charter, the Complainants argue that the deportation of Mr. Meldrum was
based on vague and unsubstantiated reasons of a danger to public order,
national security and breach of his work permit, adding that the deportation
process gives unfettered discretion to the Chief Immigration Officer, and
this is tantamount to indiscriminate practices by state authorities and
erodes the right to equality before the law, therefore it is a violation of
Article 2 of the Charter. The Complainants also argue that Article 2
guarantees against discrimination based on national origin.
90. Article 2 of the African Charter provides that:
Every individual shall be entitled to the enjoyment of the rights and
freedoms recognised and guaranteed in the present Charter without
distinction of any kind such as race, ethnic group, colour, sex, language,
religion, political or any other opinion, national and social origin,
fortune, birth or any status.
Article 3(2) provides that "[e]very individual shall be entitled to equal
protection of the law".
91. Discrimination can be defined as any act which aims at distinction,
exclusion, restriction or preference which is based on any ground such as
race, colour, sex, language, religion, political or other opinion, national
or social origin, property, birth or other status, and which has the purpose
or effect of nullifying or impairing the recognition, enjoyment or exercise
by all persons, on equal footing, of all rights and freedoms.[FN5] Article 2
of the African Charter stipulates the principle of non discrimination, which
is essential to the spirit of the African Charter.[FN6]
--------------------------------------------------------------------------------
[FN5] See The Human Rights Committee General Comment No. 18.
[FN6] See Communication 241/2001 - Purohit and Moore / The Gambia, para 49.
--------------------------------------------------------------------------------
92. The Respondent State argued that Mr. Meldrum was deported because he
violated the terms of his residence permit and therefore submit that Article
2 was not violated. The facts as presented by the Complainants indicate that
the victim, Mr. Meldrum, was legally resident in the Respondent State, his
residential permit had not expired, and he had not been refused
accreditation by the MIC. His application contesting the denial of
accreditation under AIPPA was still pending before the Supreme Court. The
High Court had ordered that he remain in the country until his application
in the Supreme Court is disposed of. It had issued a restraining order
against his deportation. In short, he was in all-fours legally resident in
the Respondent State.
93. The Respondent State did not give any details concerning the terms of
the residence permit which Mr Meldrum violated. The Commission is not
satisfied by the reasons or explanations given by the Respondent State. It
is not very clear why he was deported. Given the circumstances, it can only
be concluded that he was deported because he was a non-national who had
published what the Respondent State considered to be falsehoods, which are
not protected by the Constitution. In its decision in the case between
Institute for Human Rights and Development in Africa v Republic of Angola[FN7],
the African Commission held that 'although governments have the right to
regulate entry, exit and stay of foreign nationals in their territories, and
... although the African Charter does not bar deportations per se, the African
Commission reaffirms its position that a State's right to expel individuals
is not absolute and it is subject to certain restraints, one of those
restraints being a bar against discrimination based on national origin'.
--------------------------------------------------------------------------------
[FN7] Communication 292/2004.
--------------------------------------------------------------------------------
94. It would be interesting to know what the government would have done if
Mr. Meldrum was a Zimbabwean. Surely, the Respondent State would not have
deported its own national to another country. The only logical reason the
State deported him under then prevailing circumstances was because he was a
non-national. In the opinion of the Commission therefore, it appears that
the victim was targeted because he is not a national of the Respondent State,
and this according to the Commission constitutes a violation of Article 2 of
the Charter.
95. With respect to Article 3 of the Charter, Complainants submit that the
deportation of Mr Meldrum in defiance of the court orders amounted to a
violation of Article 3 of the African Charter. Article 3 guarantees fair and
just treatment of individuals within the legal system of a given country,
whereby every individual is equal before the law and guaranteed equal
protection of the law. Given the treatment Mr Meldrum was exposed to, would
it be argued as the Respondent State does, that he was able to access the
courts and therefore was given equal protection of the law?
96. The most fundamental meaning of equality before the law under Article
3(1) of the Charter is the right by all to equal treatment under the similar
conditions. The right to equality before the law means that individuals
legally within the jurisdiction of a State should expect to be treated
fairly and justly within the legal system and be assured of equal treatment
before the law and equal enjoyment of the rights available to all other
citizens. Its meaning is the right to have the same procedures and
principles applied under the same conditions. The principle that all persons
are equal before the law means that existing laws must be applied in the
same manner to those subject to them. The right to equality before the law
does not refer to the content of legislation, but rather exclusively to its
enforcement. It means that judges and administration officials may not act
arbitrarily in enforcing laws.
97. Factual patterns that are objectively equal must be treated equally.
Thus, it is expected that if the law requires that all those who publish
offensive articles against the government be brought before a judge for
questioning, and if found guilty, sentenced or pay a fine, this law should
apply to all those subjected to it, including nationals and non nationals
alike.
98. In the present Communication, that does not seem to be the case, because
the victim is a non-national, the Respondent State chose not to treat him as
it would have treated nationals. It is very unlikely and impractical that if
a Zimbabwean had published the same article the victim published, he/she
would have been treated the same way. In the opinion of the Commission
therefore, the Respondent State violated Article 3(1) of the Charter.
99. Equal protection of the law under Article 3(2) on the other hand, means
that no person or class of persons shall be denied the same protection of
the laws which is enjoyed by other persons or class of persons in like
circumstances in their lives, liberty, property and in their pursuit of
happiness.[FN8] It simply means that similarly situated persons must receive
similar treatment under the law.[FN9]
--------------------------------------------------------------------------------
[FN8] See People v Jacobs, 27 California Appeal, 3d 246, 103 California Rep
536, 543, 14th Amendment, US Constitution.
[FN9] See Dorsey v Solomon, DCMd.,435 F. Supp. 725.
--------------------------------------------------------------------------------
100. In its decision in Zimbabwe Lawyers for human Rights and the Institute
for Human Rights and Development /Republic of Zimbabwe[FN10], this
Commission relied on the Supreme Court decision in Brown v. Board of
Education of Topeka,[FN11] in which Chief Justice Earl Warren of the United
State of America argued that 'equal protection of the law refers to the
right of all persons to have the same access to the law and courts and to be
treated equally by the law and courts, both in procedures and in the
substance of the law. It is akin to the right to due process of law, but in
particular applies to equal treatment as an element of fundamental fairness.[FN12]
--------------------------------------------------------------------------------
[FN10] Communication 293/2004.
[FN11] 347 U.S 483 (1954).
[FN12] www.legal-explanations.com.
--------------------------------------------------------------------------------
101. In order for a party therefore to establish a successful claim under
Article 3 (2) of the Charter, it should show that, the Respondent State had
not given the Complainant the same treatment it accorded to the others. Or
that, the Respondent State had accorded favourable treatment to others in
the same position as the Complainant.
102. In the present Communication, the Commission notes that the Respondent
State treated the victim in a manner which denied him the opportunity to
seek protection of the Courts. Due process which was key to ensuring remedy
to the deportation, and therefore the protection of the rights of the victim
were denied through the arbitrary actions of the Respondent State. The
African Commission therefore finds that the Respondent State violated
Article 3 (2) of the African Charter.
ALLEGED VIOLATION OF ARTICLE 7 (1) (A) AND (B)
103. The Complainants argue that the deportation of Mr. Meldrum violated
Article 7 (1) (a) and (b). Article 7 (1) of the Charter provides that 'Every
individual shall have the right to have his cause heard. This comprises
a) The right to an appeal to competent national organs against acts
violating his fundamental rights as recognised and guaranteed by conventions,
laws, regulations and customs in force;
b) The right to be presumed innocent until proved guilty by a competent
court or tribunal.
104. Article 7 (1) deals with the right to have one's cause heard, which
comprises, inter alia (a) the right to appeal to competent national organs
against acts violating their rights, and (b) the right to be presumed
innocent until proven guilty by a competent court or tribunal.
105. In the present Communication, the victim went to the Courts of the
Respondent State. The Courts ruled in his favour against the deportation
order. The victim petition the Supreme Court for enforcement of his right to
practice his profession after his accreditation was rejected, but before the
latter could hear the application, the Respondent State deported him. Could
it be said that the victim right to have his cause heard was violated by the
Respondent State?
106. The right to have one's cause heard requires that the victims have
unfettered access to competent jurisdiction to hear their case. A tribunal
which is competent in law to hear a case must have been given that power by
law: it has jurisdiction over the subject matter and the person, and the
trial is being conducted within any applicable time limit prescribed by law.
Where the competent authorities put obstacles on the way which prevents
victims from accessing the competent tribunals, they would be held liable.
These are the issues which must be borne out by the evidence to warrant the
Commission's findings of a violation.
107. In the present Communication, it is clear that the Respondent State did
not want the victim to be heard in the Supreme Court. To ensure that this
happened, the Respondent State deported him out of the country before the
date scheduled for the hearing, thus effectively preventing him from being
heard. Admittedly, the victim could still have proceeded against the
Respondent State from wherever he was deported to, but by suddenly deporting
him the Respondent State frustrated the judicial process that had been
initiated.
108. To this extent, the Respondent State is found to have violated Article
7 (1) (a) of the African Charter.
109. Regarding the allegations concerning the violation of Article 7(1) (b),
the Commission finds that the deportation was effected in disregard of
several the High Court orders. The Immigration officers refused, or failed
to produce Mr Meldrum as was ordered by the Court. By doing so they denied
him the right to be heard by a competent and impartial tribunal. Instead
they acted under the Immigration Act without affording him an opportunity to
defend himself. The actions of the Respondent State amounted to a conclusion
that Mr Meldrum was guilty of the allegations against him, contrary to the
presumption of innocence. The Commission finds that the conduct of the
Respondent State amounted to a violation of Article 7 (1)(b) as alleged by
the Complainants.
ALLEGED VIOLATION OF ARTICLE 9
110. With respect to allegations of violation of Article 9 of the African
Charter, guaranteeing freedoms of expression, the Complainants submit that
the deportation of Mr. Meldrum deprived him of his rights to receive
information, and disseminate his opinions, as well as the right of the
general citizenry to receive information.
111. Article 9 (1) of the African Charter provides that every individual
shall have the right to receive information. Article 9 (2) state that "every
individual shall have the right to express and disseminate his opinions
within the law". Does the deportation of the victim violate his right to
freedom of expression?
112. It should be recalled that the victim's deportation arose from the
publication of an article that the Respondent State did not appreciate. The
Respondent State resorted to deportation in order to silence him, in spite a
court order that he can stays in the country. Admittedly, he is not
prevented from expressing himself where ever he was deported to, but
vis-à-vis his status in the Respondent State, which is a State Party to the
African Charter, his ability to express himself as guaranteed under Article
9 was violated.
ALLEGED VIOLATION OF ARTICLE 12 (4)
113. In the same vein, the deportation of the victim by the Respondent State
amounts to a violation of Article 12 (4) of the African Charter, which
provides that "a non-national legally admitted in a territory of a State
Party to the present Charter, may only be expelled from it by virtue of a
decision taken in accordance with the law'.
114. The African Commission notes that the import of this provision under
the African Charter is to ensure that due process is followed before legally
admitted non-nationals are expelled from a Member State. In the Union Inter
Africaine des Droits de l'Homme, Federation Internationale des Ligues des
Droits de l'Homme and Others v. Angola case[FN13], the African Commission
stated that although African States may expel non-nationals from their
territories, the measures that they take in such circumstances should not be
taken at the detriment of the enjoyment of human rights, and that while the
Charter does not bar a State's right to deport non-nationals per se, it does
require deportations to take place in a manner consistent with the due
process of law.[FN14]
--------------------------------------------------------------------------------
[FN13] Communications 159/1996.
[FN14] Id. Para 23.
--------------------------------------------------------------------------------
115. The African Charter's requirement of due process as outlined above is
also shared by similar systems elsewhere. The Human Rights Committee under
the International Covenant on Civil and Political Rights, for instance, had
expressed a similar concern over the treatment of aliens being deported from
Switzerland when it held the latter liable for degrading treatment and use
of excessive force resulting on some occasions in the death of the deportee
during deportation of aliens.[FN15] The Committee recommended that
Switzerland should "ensure that all cases of forcible deportation are
carried out in a manner which is compatible with articles 6 and 7 of the
Covenant" and that "restraint methods do not affect the life and physical
integrity of the persons concerned".[FN16]
--------------------------------------------------------------------------------
[FN15] The UN Human Rights Committee, ICCPR, A/57/40 vol. I (2002) at para.
76 (13).
[FN16] Ibid.
--------------------------------------------------------------------------------
116. Very clearly, the situation as presented by the Respondent State did
not afford the victim due process of law for protection of his rights. The
Respondent State ignored the Court orders that he be allowed to stay in the
country. The African Commission thus holds the Respondent State in violation
of the provisions of Article 12(4) of the African Charter.
ALLEGED VIOLATION OF ARTICLE 26
117. With respect to the alleged violation of Article 26, the Complainants
argue that by refusing to comply with court decisions, the Respondent State
not only violated Article 7, but also violated Article 26. Article 26 of the
Charter provides that State Parties shall have the duty '...........to
guarantee the independence of the courts...' The Complainants argue further that the
deportation is in violation of Article 7 (a) and (b) as read together with
Article26 of the Charter, noting that Article 7 gives meaning to the
individual right, whilst Article 26 emphasizes on the importance of ensuring
the independence and integrity of the institutions which give effect to the
right in Article 7.
118. It is impossible to ensure the rule of law, upon which human rights
depend, without guaranteeing that courts and tribunals resolve disputes both
of a criminal and civil character free of any form of pressure or
interference. The alternative to the rule of law is the rule of power, which
is typically arbitrary, self-interested and subject to influences which may
have nothing to do with the applicable law or the factual merits of the
dispute. Without the rule of law and the assurance that comes from an
independent judiciary, it is obvious that equality before the law will not
exist.[FN17]
--------------------------------------------------------------------------------
[FN17] See the views expressed by K Ryan, in "Judges, Courts and Tribunals",
paper presented at the Australian Judicial Conference Symposium on Judicial
Independence and the Rule of Law at the Turn of the Century, Australian
National University, Canberra, 2 November 1996.
--------------------------------------------------------------------------------
119. It is a vital requirement in a state governed by law that court
decisions be respected by the state, as well as individuals. The courts need
the trust of the people in order to maintain their authority and legitimacy.
The credibility of the courts must not be weakened by the perception that
courts can be influenced by any external pressure.
120. Thus, by refusing to comply with the High Court orders, staying the
deportation of Mr. Meldrum and requiring the Respondent State to produce him
before the Court, the Respondent State undermined the independence of the
Courts. This was a violation of Article 26 of the African Charter.
121. In view of the above reasoning, the African Commission:
holds that the Respondent State, the Republic of Zimbabwe, has violated
Articles 1, 2, 3, 7(1) (a) and (b), 9, 12(4) and 26 of the African Charter.
The African Commission recommends that the Respondent State should:
a. Take urgent steps to ensure court decisions are respected and implemented;
b. Rescind the deportation orders against Mr. Andrew Meldrum, so that he can
return to Zimbabwe, if he so wishes, being a person who had permanent
residence status prior to his deportation. The status quo ante to be
restored;
c. Ensure that the Supreme Court finalizes the determination of the
application by Mr Meldrum, on the denial of accreditation;
d. In the alternative, taking into account that the AIPPA has undergone
considerable amendments, grant accreditation to Mr Andrew Meldrum, so that
he can resume his right to practice journalism; and
e. Report to the African Commission within six months on the implementation
of these recommendations.
Adopted during the 6th Extra-Ordinary Session of the ACHPR, Banjul, The
Gambia. April, 2009 |
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