THE REPUBLIC OF UGANDA

IN THE CONSTITUTIONAL COURT OF UGANDA AT KAMPALA

CONSOLIDATED PETITIONS
1. CONSTITUTIONAL PETITION NO. 16 OF 2013
5
1. HON.LT(RTD) SALEH M.W.KAMBA
2. MS AGASHA MARY ....................... PETITIONERS
VERSUS
1. THE ATTORNEY GENERAL
10 2. HON.THEODORE SSEKIKUBO
3. HON.WILFRED NIWAGABA .... RESPONDENTS
4. HON.MOHAMMED NSEREKO
5. HON.BARNABAS TINKASIMIRE

15 AND CONSTITUTIONAL APPLICATION NO.14 OF 2013 ARISING

FROM CONSTITUTIONAL PETITION NO. 16 OF 2013
2. CONSTITUTIONAL PETITION NO.21 OF 2013
NATIONAL RESISTANCE MOVEMENT....PETITIONER
VERSUS
20 1. THE ATTORNEY GENERAL
2. HON.THEODORE SSEKIKUBO.... RESPONDENTS
3. HON.WILFRED NIWAGABA
4. HON.MOHAMMED NSEREKO
5. HON.BARNABAS TINKASIMIRE
25 AND CONSTITUTIONAL APPLICATION NO.25 OF 2013 ARISING
FROM CONSTITUTIONAL PETITION NO. 21 OF 2013
3. CONSTITUTIONAL PETITION NO.19 OF 2013

30 JOSEPH KWESIGA...................................PETITIONER
VERSUS
ATTORNEY GENERAL..............................RESPONDENT

4. CONSTITUTIONAL PETITION NO.25 OF 2013

 HON.ABDU KATUNTU..............................PETITIONER
(SHADOW ATTORNEY GENERAL)

5 VERSUS
THE ATTORNEY GENERAL.....................RESPONDENT

10 CORAM: HON.MR. JUSTICE S.B.K KAVUMA AG. DCJ/PCC,

HON. MR. JUSTICE A.S. NSHIMYE JA/JCC,
HON. MR. JUSTICE REMMY KASULE JA/JCC,
HON. LADY JUSTICE FAITH MWONDHA JA/JCC,
HON. MR. JUSTICE RICHARD BUTEERA JA/JCC,
15
JUDGMENT OF:

HON. MR. JUSTICE S.B.K KAVUMA AG. DCJ/PCC

HON. MR. JUSTICE A.S. NSHIMYE JA/JCC,
20 HON. MR. JUSTICE RICHARD BUTEERA JA/JCC,

Introduction
Constitutional petition Nos. 16,19,21 and 25 of 2013 were filed into this court
25 separately and later consolidated. Nearly at the same time, the Constitutional
Application Nos.16, 14 and 23 of 2013, arising from Constitutional Petitions Nos.
16 and 21 were also filed separately. The Court decided to consolidate the said
Petitions and Constitutional Applications and hear them together.

30 Facts and background

The facts from which the consolidated Constitutional Petitions and Applications
arise are as follows:
 The 2nd, 3rd, 4th and 5th respondents in Constitutional Petition Nos.16 and 21 of
2013 are the elected Members of Parliament (MPs), representing Lwemiyaga
County in Sembabule District, Ndorwa East, Kabale District, Kampala Central,
Kampala District,(Now Kampala Capital City Authority), and Buyaga East, Kibale
5 District Constituencies respectively. They all once belonged to the National
Resistance Movement (NRM) Party.

On 14th April 2013, the Central Executive Committee (CEC) of the NRM expelled
the four from the party on grounds that they had acted/behaved in a manner that
contravened various provisions of the party constitution. The respondents
10 challenged their expulsion in the High Court and the matter is still pending.

Following the expulsion of the said four MPs from the NRM party, the Secretary
General of the Party wrote to the Rt. Hon. Speaker of Parliament informing her of
the party’s decision and requesting her to direct the Clerk to Parliament to declare
the seats of the 2nd, 3rd, 4th and 5th respondents in Parliament vacant to enable the
15 Electoral Commission conduct by-elections in their constituencies.

On the 2nd of May 2013, the Rt. Hon. Speaker in her ruling in Parliament declined
to declare the seats vacant and upon that refusal, Hon. Lt. (Rtd) Saleh Kamba and
Ms.Agasha Marym filed Constitutional Petition No.16 of 2013 in this Court
challenging the constitutionality of the Speaker’s decision.

20 Similarly Mr. Joseph Kwesiga filed Constitutional Petition No. 19 of 2013

challenging the same decision. This was followed by Constitutional Petition No.
21 of 2013 which was filed by the National Resistance Movement party also
challenging the same decision.

On 8th May 2013, the Attorney General wrote to the Rt. Hon. Speaker of
25 Parliament advising her to reverse her decision on the grounds that it was
 unconstitutional. Constitutional Petition No.25 of 2013 filed by the Shadow
Attorney General, Hon. A. Katuntu challenges the Attorney General’s advice to the
Speaker.

The Attorney General filed a reply, in addition to which he filed a cross Petition to
5 Constitutional Petition No. 25 of 2013.

The scheduling conference conducted inter parties, left a disputed fact as to

whether the Speaker allocated the expelled MPs special seats in Parliament. At the
said scheduling conference, counsel for the 2 nd, 3rd, 4th and 5th respondents also
raised a preliminary objection as to whether Constitutional Petition Nos. 16 and 21
10 disclosed a cause of action.

At the scheduling conference, 13 issues were framed and at the commencement of

the hearing of the consolidated Constitutional Petitions issue No.7 was framed by
court bringing the total number of issues to 14 substantially listed as below:-

1. Whether the expulsion from a political party is a ground for a Member

15 of Parliament to lose his / her seat in Parliament under Article 83(i)(g)
of the 1995 Constitution of Uganda.
2. Whether the act of the Rt.Hon. Speaker in the ruling made on the 2 nd of
May 2013 to the effect that the 4 MPs who were expelled from the
National Resistance Movement (NRM), the party for which they stood
20 as candidates for election to Parliament should retain their respective
seats in Parliament is inconsistent with or in contravention of the named
constitutional provisions.
3. Whether the Rt.Hon.Speaker of Parliament in her communication
created a peculiar category of Members of Parliament, peculiar to the
25 Constitution.
 4. Whether the continued stay in Parliament of the four MPs after their
expulsion from the NRM Party on whose ticket they were elected is
contrary to and/or inconsistent with Articles 1(1) (2)(4), 2(1), 21(1)(2),
29(1)(e), 38(1), 43(1), 45, 69(1), 71, 72(1), 72(2), 72(4), 78(1), 79(1)(3) and
5 255(3) of the Constitution.
5. Whether the said expelled MPs who left and/or ceased being members
of the Petitioner vacated their respective seats in Parliament and are no
longer Members of Parliament as contemplated by the Constitution.
6. Whether the said expelled MPs vacated their respective seats in
10 Parliament and are no longer Members of Parliament as contemplated
by the Constitution.
7. Whether the Court should grant a Temporary injunction stopping the
said four members of Parliament from sitting in Parliament pending the
determination of the consolidated constitutional petitions.
15 8. Whether the Rt.Hon. Speaker had jurisdiction to make a ruling on such
a matter and whether her action is inconsistent with or in contravention
of the Constitution.
9. Whether the act of the Attorney General of advising that the only
persons who can sit in Parliament under a multiparty political system
20 are members of political parties and representatives of the army is
inconsistent with and in contravention of Article 78 of the Constitution.
10.Whether the act of the Attorney General of advising that after their
expulsion from the NRM Party, Hon. Theodore Ssekikubo, Hon.
Wilfred Niwagaba, Hon. Mohammed Nsereko and Hon. Barnabas
25 Tinkasimire are no longer Members of Parliament, is inconsistent with
and in contravention of Article 83(1) (g) of the Constitution.
 11.Whether the act of the Attorney General of advising the Speaker of
Parliament to declare the seats of Hon. Theodore Ssekikubo, Hon.
Wilfred Niwagaba, Hon. Mohammed Nsereko and Hon. Barnabas
Tinkasimire in Parliament, are now vacant because of their expulsion
5 from the NRM Party is inconsistent with and or in contravention of
Article 86(1) (a) of the Constitution.
12.Whether the act of the Attorney General of advising the Speaker of
Parliament to reverse her ruling on whether the seats of Hon. Theodore
Ssekikubo, Hon. Wilfred Niwagaba, Hon. Mohammed Nsereko and
10 Hon. Barnabas Tinkasimire is inconsistent with and or in contravention
of Article 119 of the Constitution.
13.Whether the act of the Attorney General of advising the Speaker of
Parliament to reverse her ruling on whether the seats of Hon. Theodore
Ssekikubo, Hon. Wilfred Niwagaba, Hon. Mohammed Nsereko and
15 Hon. Barnabas Tinkasimire are vacant when the said ruling is the
subject of court’s interpretation in Constitutional Petition No.16 of
2013, where the Attorney General is the 1st respondent, is inconsistent
with and in contravention of Article 137 of the Constitution.
14.What remedies are available to the parties?

20

Representation

Petitioners/Applicants

At the hearing of the consolidated Constitutional Petitions and the applications,

Counsel John Mary Mugisha (lead Counsel), Joseph Matsiko, Chris John Bakiza
25 Sam Mayanja and Severino Twinobusingye represented the Petitioners in
 Constitutional Petition Nos 16 and 21 of 2013 and in application No.14 and 23 of
2013.

Counsel Elison Karuhanga represented the petitioner in Constitutional Petition No.

19 of 2013.

5 Counsel Peter Mukidi Walubiri represented the Petitioner in Constitutional Petition

No. 25 of 2013.

Attorney General

The first respondent in all the above consolidated Petitions and the cross Petitioner
10 in Constitutional Petition No. 25/2013 was represented by Mr. Cheborion
Barishaki, the Director of Civil litigation at the Attorney General’s Chambers, Ms
Patricia Mutesi, Principal State Attorney, Mr. Richard Adrole, Ms Moureen Ijang,
and Ms Imelda Adongo all State Attorneys at the same chambers.

Counsel for the respondents in Constitutional Petition No.16 and

15 Constitutional applications Nos. 14 and 23 of 2013.

The 2nd, 3rd, 4th and 5th respondents in Constitutional Petition Nos. 16 and 21 and
Constitutional Application Nos. 14 and 23 of 2013 were represented by Counsel
Prof.G.W.Kanyeihamba (lead Counsel), Prof. Fred Sempebwa, Ben Wacha,
Wandera Ogalo, Emmanuel Orono, Medard Sseggona, Kyazze Joseph, Galisonga
20 Julius, and Caleb Alaka.

Principles of Constitutional interpretation

We find it appropriate at this juncture to restate some of the time tested principles
of constitutional interpretation we consider relevant to the determination of
 Constitutional Petitions and Applications before court. These have been laid down
in several decided cases by the Supreme Court, this Court, other courts in other
Commonwealth jurisdictions and expounded in some legal literature of persuasive
authority.

5 These principles are:

1. The Constitution is the Supreme law of the land and forms the standard
upon which all other laws are judged. Any law that is inconstant with or in
contravention of the Constitution is null and void to the extent of the
inconsistency. See Article 2(2) of the Constitution. See also The Supreme
10 Court in Presidential Election Petition No.2 of 2006 (Rtd) Dr. Col Kiiza
Besigye vs Y.K. Museveni and Supreme Court Constitutional Appeal No.2
of 2006, Brigadier Henry Tumukunde versus The Attorney General and
Another.

2. In determining the constitutionality of a legislation, its purpose and effect must

15 be taken into consideration. Both purpose and effect are relevant in determining
constitutionality, of either an unconstitutional purpose or an unconstitutional effect
animated by the object the legislation intends to achieve.

See. Attorney General vs Silvaton Abuki Constitutional Appeal No. 1/1998(SC).

3. The entire Constitution has to be read together as an

20 integral whole and no particular provision destroying the other but each
sustaining the other. This is the rule of harmony, the rule of completeness and
exhaustiveness. See P.K Ssemwogerere and Another vs Attorney General –
Constitutional Appeal No. 1/2002 (SC) and The Attorney General of Tanzania vs
Rev. Christopher Mtikila [2010.].EA13
 4. A constitutional provision containing a fundamental human right is a
permanent provision intended to cater for all times to come and therefore should
be given a dynamic, progressive, liberal and flexible interpretation, keeping in
view the ideals of the people, their socio economic and political cultural values so
5 as to extend the benefit of the same to the maximum possible.

See Okello Okello John Livingstone and 6 others Versus The Attorney General
and another, Constitutional Petition No. 1 of 2005(CA), Kabagambe Asol and 2
others vs The Electoral Commission and Dr. Kiiza Besigye. Constitutional
Petition No.1of 2006 (CA) and South Dakota vs South Carolina 192, U.S.A 268,
10 1940.

5. Where words or phrases are clear and unambiguous, they must be given their
primary, plain, ordinary or natural meaning. The language used must be
construed in its natural and ordinary sense.

6. Where the language of the Constitution or a statute sought to be interpreted is

15 imprecise or ambiguous, a liberal, generous or purposeful interpretation should be
given to it. See The Attorney General Versus Major General David Tinyefuza
(Supra)

7. The history of the Country and the legislative history of the Constitution is also
relevant and a useful guide in constitutional interpretation.

20 See Okello Okello John Livingstone and 6 others Versus the Attorney General
and Another. Constitutional Petition No.4 of 2005 (CA)

8. The National Objectives and Directive Principles of State Policy in the

Constitution are also a guide in the interpretation of the Constitution.
 Bearing in mind the above principles of Constitutional interpretation among others,
we now proceed to consider submissions of Counsel for all the parties and the
evidence before us and relate them to the issues raised in the said petitions and
Applications.

5 Issues no.1, 4, 5 and 6.

The above four issues were argued together by all counsel that handled them. We
too shall consider them together. At the conferencing there was no agreement on
the wording of issues No.5 and 6 which were retained as they were with liberty to
counsel to argue them as they preferred.

10 It became clear in the course of the hearing, that the gist in these issues is whether
the expelled Members of Parliament left the party for which they stood and were
elected to Parliament and whether they vacated their seats thus rendering their
continued stay in parliament unconstitutional.

Counsel for the Petitioners in Constitutional Petition numbers 16, 19 and 21 of

15 2013, with counsel for the Attorney General were in agreement, and took a
common stand on these issues.

They argued that, upon expulsion from the NRM party, which party had sponsored
the 2nd, 3rd, 4th and 5th respondents, and for which they stood for elections, they left
the party and no longer represented its interests in Parliament. They did not join
20 and do not represent the opposition. They were not under the control or direction
of any of the parties represented in Parliament. They were not independents as
provided for in the Constitution. Counsel argued that the word leave used in
Article 83(1)(g) is neutral as to cause. The expelled MPS could not, counsel
submitted, become independents legally as they had not been elected to Parliament
25 as independents. Counsel contended that the 2 nd, 3rd 4th and 5th respondents became
 de facto independents in Parliament and that this was in contravention of Article
83 (1) (g).

Submissions by Counsel for the 2nd 3rd 4th and 5th respondents and Counsel for
5 the Petitioner in Constitutional Petition No.25 of 2013 on issues No. 1,4,5 and
6

Counsel for the 2nd, 3rd, 4th and 5th respondents and counsel for the Petitioner in
Constitutional Petition No.25/2013 argued that the expulsion of the 2 nd, 3rd, 4th and
5th respondents from the NRM party did not result into their leaving the party for
10 which they stood as candidates and were elected to Parliament as envisaged under
Article 83(1)(g).

To Counsel, the word leave used in Article 83(1)(g) imports voluntary action on
the part of the person who leaves a party to join another or to become an
independent. Counsel submitted that Article 83(1)(g) was designed as an
15 instrument to prevent a Member of Parliament from voluntarily leaving his /her
party and crossing the floor to join another party or to become an independent.
They submitted that the issue of expulsion from a political party was not
contemplated. There was a lacuna in the Constitution and according to Counsel,
that should be handled by Parliament and not by this Court.

20

Court’s resolution of Issues No. 1,4,5 and 6

The meaning of the word leave as used in Article 83(1)(g) is important for the
determination of the issues now under consideration.
 The word , in our view, is clear and unambiguous.

We find the literal rule of constitutional interpretation stated above as appropriate

to apply in interpreting the word leave.

What is the ordinary and natural meaning of the word leave? The Oxford
5 Advanced Learner’s Dictionary defines leave as “go away from; cease to live at
(a place) belong to a group”, Webster’s New World Dictionary defines “leave”
as “to go away from/to leave the house, to stop living in, working for, or
belonging to; to go away”. From the above, we find that the word leave in the
context in which it is used is neutral as to cause and connotes, inter alia going
10 away and/or ceasing to belong to a group.

Counsel for the 2nd 3rd 4th and 5th respondents invited us to consider the legislative
history of Article 83(1)(g) of the Constitution and we oblige. Article 83(1)(g) was
in the 1995 Constitution. It was worded as it is currently after the 2005
Constitutional amendment.

15 The background to the inclusion of Article 83(1) (g) is reflected in the report of the
Uganda Constitutional Commission, Analysis and Recommendations. The relevant
part was annexed and marked as ‘D’ to the affidavit of the Hon. Theodore
Ssekikubo.

“The Commission reported that because of Concerns arising

20 from the memory of the crossing of the floor by almost all
opposition members during the Obote I Government and some
considerable number in Obote II, Government formed the
basis for submission of strong views that in case of a Multi-
party Parliament, any member wishing to cross the floor must
25 first resign his or her seat and seek fresh mandate from his
 constituency… In addition, the members elected as
independent candidates should be treated the same way if they
join political parties.”(sic)

The Constitutional Commission recommended inclusion of a constitutional

5 provision to deal with this vice. Article 83(1) (g) thus found its way into the 1995
Constitution. The mischief that was targeted in 1995 was to stop the weakening of
political parties by elected Members of Parliament crossing from the parties for
which they were elected and joining other parties whilst in Parliament without
seeking a fresh mandate from the electorate or becoming independent whilst in
10 Parliament without seeking such a mandate.

There was an attempt to amend Article 83(1) (g) in 2005 by The Constitutional
(Amendment)(No.3) Bill, 2005. The proposed amendment was:-

“83(1)(g) if that person leaves the political organization

or political party for which he or she stood as a
15 candidate for election to Parliament to join another
political organization or political party or to remain in
Parliament as an independent member or if he or she is
expelled from the political organization or political
party for which he or she stood as a candidate for
20 election to Parliament”

The underlined are the words that were proposed to be added to the original article
in order to effect the amendment. The proposed amendment was debated on 7 th
July 2005 and again on 8th August 2005 when the same was withdrawn. It was a
heated debate. There was opposition to amending the article for various reasons.
25 Some members, for example, opposed the amendment and called for its deletion
 because it would lead to dismissals and counter dismissals from political parties
and it would be used for internal discipline of political parties.

There are others, however, who supported deletion of the proposed amendment
because it was redundant. These included Hon. Jacob Oulanyah who chaired the
5 Legal and Parliamentary Committee that had proposed the amendment. He stated:-

“on Clause 26, the Committee had proposed an

insertion but after reflection and considering what
exists in the Constitutional provision, it is not
necessary,…”

10 Hon. Ben Wacha was of the same view as Hon. Jacob Oulanyah. He supported the
proposal for deletion of the proposed amendment and stated:-

“I am supporting it just because the words he is complaining

about are actually redundant. What is the effect of a person if
he or she is in Parliament? That person would (a) choose to
15 remain independent or (b) he or she might choose to join
another party now, if those are the two effects, then they are
fully covered by the first part of the clause, which therefore
makes the second half, which honourable Wandera is
complaining about; so this becomes redundant.”(sic)

20 Hon. Adolf Mwesigye, the responsible Minister, explained that the purpose of the
amendment was to make it clearer. He stated:

“The Constitution, Article 83(1)(g), there is already a

provision, which provides for the vacation of a seat of a
 Member of Parliament if a person leaves a political
party organisation for which he contested.

When you are expelled from a party, the effect of the

expulsion is that you leave the party that is the effect.
5 You cannot be expelled and stay. You can actually be
expelled, and you choose not to run as an individual or
not even to run for another political party.

So Madam Chairperson, the purpose of introducing this

amendment was to make it clearer …(sic)”

10 The debate continued with members expressing different views. The person then
chairing the debate that afternoon was the then Deputy Chairperson (Hon.
Rebbecca Kadaga). According to the Hansard, she stated:-

“Honourable Members, if you are expelled you do not stay;

when you are expelled you go.”

15 The amendment was withdrawn by the Minister of Justice and Constitutional

Affairs. He said:

“...had caused a lot of controversy. Honourable members

expressed serious concerns about what it meant. We can go
into explaining what it meant and so on, but we propose in the
20 interest of peace that the clause be deleted.”

This was reconciliatory language used by, the learned Minister of Justice and
Constitutional affairs/Attorney General but did not remove the redundancy of the
proposed amendment that he withdrew. The proposed amendment was withdrawn
but not defeated.
 The interpretation that the legislators read into Article 83(1)(g) in the debate of
2005 had been pointed out in the debate leading to the 1995 Constitution. That
interpretation was not new. It was debated and retained in the 1995 Constitution.

The Hansard reporting proceedings of 23 rd March 1995 shows that the Constituent
5 Assembly debated this same issue. See pages 3533,3534 of the Hansard.

Mr. Lumala Deogratius (RIP) (Kalungu west), sought clarification as stated

below:-

“Madam Chairman, I am seeking clarification with regard to

changing parties from one to the other. In practice, someone
10 may decide not to formally resign from one party to another
for fearing that he will not be elected if he did so. So he sits
on benches of the opposition but will always vote with the
other party”(sic)

Mr. Mulenga(RIP) offered clarification in response in the following words:-

15 “Perhaps to put the minds of Hon. Lumala and others at ease,

the word used is leaves. He can leave either voluntarily or by
expulsion. If that party notices that he is no longer
supporting them, they might expel him from the party and
therefore, he leaves the party.”

20 The above is the legislative history of Article 83(1)(g).

This Court had occasion to interpret this article before. This was in Constitutional
Petition No.38 of 2010 George Owor vs The Attorney General & Hon. William
Okecho.
 The 2nd respondent had contested for a seat in Parliament and he was elected as an
Independent. Whilst still in Parliament, he joined the National Resistance
Movement Party and contested in the party primary elections. When interpreting
Article 83(1)(g) this Court held:-

5 “that Article 83(1)(g) is a simple and clear provision. It is

not ambiguous and should be construed basing on the
natural meaning of the English words used in the relevant
Clause.” The Court held;

“In our judgment the provision means:-

10 (I) A Member of Parliament must vacate his/her seat if he/she

was elected on a political party/organization ticket and then
before the end of that Parliament the member joins another
party.
(II) He/she must vacate his/her seat if he/she was elected on a
15 party ticket and elects to be nominated as an Independent
before the term of the Parliament comes to the end.
(III) If he/she was elected to Parliament on a party ticket, he/she
cannot remain in Parliament as an Independent member.
(IV) Common sense dictates that if one was elected to Parliament
20 on a political party ticket and joins another party, he/she
cannot be validly nominated for election on the ticket of
that latter party unless he/she has at the time of nomination
resigned or vacated the seat in Parliament.
(V) If one was elected to Parliament on a party ticket and he/she
25 leaves that party to become independent, he/she cannot
 validly be nominated as an independent unless he/she has
ceased to be or has vacated the seat in Parliament...

The rationale of this interpretation is easy to see. You

5 cannot, in a multiparty political system continue to
represent the electorate on a party basis in Parliament while
at the same time offering yourself for election for the next
Parliament on the ticket of a different political party or as
an independent.”

10 It was submitted by Counsel for the 2 nd, 3rd, 4th and 5th respondents and for the
Petitioner in Const. Petition No.25 of 2013 that the George Owor Case (supra) is
in respect of an MP voluntarily changing and should not be applied to one who has
been expelled from his political Party. To Counsel, the expulsion of a Member of
Parliament from his political party is not a constitutional matter. It is a matter
15 between the Member of Parliament and his political party.

Counsel for the petitioners, (save for Counsel for the Petitioner in Constitutional
Petition No.25/2013) and the Attorney General, submitted that when the 2 nd, 3rd, 4th
and 5th respondents left their party, they were no longer controlled by their political
Party. They became de facto independent Members of Parliament. They were not
20 elected as independent Members of Parliament. Their stay in Parliament is
unconstitutional.

Article 83(1)(g) in the 1995 Constitution targeted, inter alia, the problem of MPs
crossing the floor of Parliament. But is the evil or the mischief merely crossing the
floor? Crossing the floor, in our view is, only part of the problem. The mischief is
 much wider. The purpose of incorporating the article in the Constitution was to
protect multi-partism in particular.

The article should therefore be interpreted using the liberal or generous rule of
interpretation. As was held by Justice G.W.Kanyeihamba JSC, (as he then was) in
5 the case of the Attorney General vs. Major General David Tinyefuza (supra) at
page 9:-

“It is also a recognized principle by Courts in many

jurisdictions that in interpretation, a Constitution of a state
must be given a generous and purposive construction as was
10 opinionated by Lord Diplock in the Gambian case of
Attorney General v Modou Jobe (1984) AC 689, at P.700
and by Lord Keith in the Trinidad & Tobago case of
Attorney General v. Whiteman (1991)2 WLR, 1200, at P.
1204 with the marks:-

15 “The language of a constitution falls to be construed, not in a

narrow and legalistic way, but broadly and purposively so as
to give effect to its spirit, and this is particularly true of those
provisions which are concerned with the protection of
Constitutional rights.”

20 In the same case, his Lordship, with approval, quoted the case Botswan of Dow v
Attorney General (1992) LRC (623). Agunda, JA, said:-

“...It (the Constitution) cannot be a lifeless museums piece;

on the other hand, the Courts must continue to breathe life
into it from time to time as the occasion may arise to ensure
25 the healthy growth and development of the State through
 it... We must not shy away from the basic fact that whilst a
particular construction of a Constitutional provision may be
able to meet the designs of the society of a certain age such a
construction may not meet those of a later age. I conceive it
5 that the primary duty of the Judges is to make the
Constitution grow and develop in order to meet the just
demands and aspirations of an ever developing society
which is part of the wider and larger human society
governed by some acceptable concepts of human dignity.”

10 The underlining is ours for emphasis.

If a Member of Parliament was expelled from the political party for which he or
she stood as a candidate for election to Parliament he/she would have left his/her
political party.

Upon expulsion he/she is no longer under the control or direction of the party for
15 which he/she was a candidate and was elected. He/she is not under the control,
direction and does not belong to any political party that is represented in
Parliament.

Black’s Law Dictionary defines independent as:

“(ii)...not subject to the control or influence of another

20 Not associated with another (often larger entity).”

Webster’s’ New World dictionary defines Independent as
“(i) free from the influence, control, or determination
of another or others. (c) not connected with any
 political party organization.” It is further defined in
another definition as
“a person not an adherent of any political party;”
After expulsion, the 2nd, 3rd, 4th and 5th respondents became de facto independents
5 in Parliament. They do not qualify to be de jure independents as they did not stand
for elections as independents. Would they stay in Parliament in that capacity when
they are de facto independent and yet they had stood for a political party during
their elections to Parliament? Would their stay in Parliament in those
circumstances promote the growth of multi-partism as contemplated by the
10 enactors of Article 83(1)(g)?

In our view, a Member of Parliament that has been expelled from the political
party for which he/she stood as a candidate and was elected to Parliament, would
not adhere to his/her political party after the expulsion.

If he/she remained in Parliament after the expulsion, he/she would in effect, not be
15 different from the one who would have crossed voluntarily.

The party he/she left would be disadvantaged and would not rely on him or her. It
needs the same protection as the party of the members who voluntarily crossed the
floor. Multi-partism needs the same protection from the conduct of such Members
of Parliament if it is to grow.

20 That was the purpose of enacting Article 83(1)(g) in the Constitution. The Article
should be interpreted to give effect to the purpose for which it was enacted.

It was submitted by counsel for the 2 nd, 3rd, 4th and 5th respondents that members of
Parliament represent constituencies and not political parties in Parliament.
Counsel further submitted that members of Parliament have their individual rights
25 and should therefore be protected from the dictates of the parties for which they
 stood as candidates during elections. It was argued that they were elected by their
Constituencies which comprised of different political parties and that the electorate
comprised of different political party members. They, therefore, were not elected
only by members of the political party for which they stood as candidates. The
5 members of Parliament, therefore, according to counsel, are accountable to
Parliament.

It is true that Members of Parliament represent their Constituencies in Parliament.

Political parties, however, are the driving engines and play recognized significant
roles in Parliamentary affairs in a multiparty political dispensation. This is
10 recognized and provided for, inter alia, in the National Objectives and Directive
Principles of State Policy, various provisions of the Constitution and the Rules of
procedure of Parliament.

Article 82A of the Constitution for instance provides for the position of Leader of
the Opposition. Article 90 provides for appointment of Parliamentary Committees
15 for the efficient discharge of Parliamentary functions. Parliamentary Committees
operate under the Rules of Procedure of Parliament which are made under Article
94 of the Constitution.

Rule 148 (3) (of the Rules of Procedure of Parliament) provides:-

Rule 148(1)...

20 (2)...

3“…so far as reasonably practicable, the overall membership of

Committees shall reflect proportional membership in the house
taking into consideration the numerical strength of the parties and
the interests of the independent members.”
 Rule 148 (5) provides:-

“parties have powers to withdraw and relocate members

from individual Committees.”

Political parties are so important in their roles in Parliament that the rules of
5 procedure provide clearly for party leadership in Parliament.

Rule 14 provides for the posts of the Government Chief Whip, the Chief
Opposition whip and a party Whip for a Party in opposition. These leaders ensure
due attendance, conduct of their members, participation in proceedings and voting
in Parliament of members of their parties.

10 In view of these provisions, it’s clear that although members of Parliament

represent their constituencies, they play important roles in Parliament on behalf of
their political parties.

If expelled Party members remained in Parliament after their expulsion, then the
numerical strength of the party they left and its representation on Parliamentary
15 Committees would be adversely affected. Clearly this would prejudice and
undermines the proper functioning of the political parties, and the healthy growth
of multi-partism.

The Supreme Court of New Zealand in SC CUV 9/2004 between Richard

William Prebble, Ken Shirely, Rodney Hide & Muriel Newman and Donna
20 Awatere Huata, handled a case with facts as set out below:-

Donna Awatere Huata was elected as a Member of Parliament for ACT New
Zealand Political Party in 1999 general elections. Mrs Awatere Huata’s
subscription as a member of ACT Party was not renewed by her when it became
due in February 2003. She tried to renew her membership on 6 th November 2003
 but the party refused to accept her subscription. On 10 th November 2003, the leader
of the ACT Parliamentary Party gave notice to the Speaker that she was no longer
a member of the ACT Caucus. Mrs Awatere Huata denied the allegations against
her and contended, she continued to represent ACT political party interests. She
5 said “I have not left the ACT party at all, rather the ACT party has chosen to
suspend and ostracise me.” The leader of ACT Parliamentary Party initiated the
process for her seat to become vacant. In handling this case the New Zealand
Supreme Court held:-

“The language of “cessation” is neutral as to cause. Such

10 neutrality does not suggest that a member ceases to belong
to the party only where he has resigned formally or by
unequivocal conduct. Reciprocity in freedom of association
is of the nature of voluntary groups, and is secured for ACT
New Zealand and its parliamentary caucus by their rules.
15 Just as members are free to move on from the party, the
party is free to leave members behind, if it acts in
accordance with its rules of association and if it is willing to
wear the political risk of such action with the electorate.
Whether the change in affiliation is a result of the party
20 acting to exclude the member of Parliament from its caucus
or whether it is a result of the member of Parliament
resigning or becoming independent, distortion of the
proportionality of political party representation in
Parliament as determined by electors equally results if the
25 member continues to remain as a member of Parliament.”
 The above decision is not binding on this Court but New Zealand is a
Commonwealth country and the case is persuasive. We also find the reasoning
persuasive as the factual situation the court was handling is, in a way, similar to
that in the instant petitions.

5 In Uganda, during a Multiparty political dispensation, the electorate in their

various electoral constituencies delegate some of their disciplinary powers over
their Members of Parliament to their respective political parties. This is why,
during the time when the Multiparty Political System of governance is in
operation, the electorate in their constituencies cannot exercise their disciplinary
10 powers of recalling any errant Member of Parliament under Article 83(1)(f) of the
Constitution. That is left to the political parties represented in Parliament to be
exercised through their various organs.

In conclusion to these issues, we do find that the 2 nd, 3rd 4th to 5th respondents were
expelled from the[NRM] party for which they stood as candidates for election to
15 Parliament, a fact they do not deny. Upon their expulsion they left the Party. We
follow the binding decision of this Court in the Gorge Owor case (supra) and hold
that they vacated their seats in terms of Article 83(1)(g) of the Constitution.
Vacation of their seats was by operation of that constitutional Article.

They remained in Parliament as de-facto independent members of Parliament with

20 an unconstitutional status. We therefore answer issues 1,4,5 and 6 in the
affirmative.

Issues Nos 2,3 and 8

Alleged unconstitutional acts of the Right Hon. Speaker of Parliament.

 We shall handle issues No.2 and No.3 together. The two issues are related and
were submitted upon together.

Counsel for the petitioners, save for Counsel for the Petitioner in Constitutional
Petition No. 25 of 2013, argued that the Rt. Hon. Speaker of Parliament acted
5 unconstitutionally when by her ruling of 2nd May 2013 she declined to declare
vacant the seats in Parliament of the 2 nd, 3rd, 4th and 5th respondents and retained
them in Parliament after their expulsion from their party. That they had left the
Party and therefore, under Article 83(1)(g), had vacated their seats in Parliament.

Counsel for the said petitioners submitted that the 2 nd, 3rd, 4th and 5th respondents
10 upon expulsion, from the NRM party, left the party and thus lost their seats in
Parliament.

That the Speaker created a special category in Parliament when she allocated them
seats of a category not envisaged by the Constitution.

It was submitted for the 2nd 3rd 4th and 5th respondents that they were elected to
15 Parliament by their constituencies. That the Speaker of Parliament had powers to
allocate them seats as members of Parliament. That when she allocated them seats
in Parliament that was in exercise of her powers. She did not thereby create a
special category of members of Parliament.

Article 81(4) provides that every Member of Parliament shall take the subscribed
20 oath of allegiance and that of a member of Parliament. The members of Parliament
then qualify to sit in the House under Article 81(5).

The Speaker of Parliament has power then to allocate seats to them in accordance
with Rule 9 of the Rules of Procedure of Parliament. The rule directs the Speaker
on how the seats are to be allocated.
 The seats to the right hand side of the Rt. Hon. Speaker are reserved for members
of the political party in power. Currently in the 9 th Parliament, the NRM political
party is the party in power.

The Leader of the Opposition and members of the opposition parties sit on the left
5 hand side of the Rt. Hon. Speaker.

After their election, the 2 nd, 3rd, 4th and 5th respondents took the prescribed oath, and
occupied seats allocated to them on the right hand side of the Rt. Hon. Speaker
because they belonged and subscribed to the NRM ruling party.

In our considered view, the Rt. Hon. Speaker is, under the Constitution and the
10 rules of procedure of Parliament, empowered to allocate seats in accordance with
the said rules made under Article 94 of the Constitution.

When the 2nd, 3rd, 4th and 5th respondents were expelled from the NRM party, the
Speaker was informed.

For members of Parliament elected on the sponsorship of a political party that is in

15 government, their seats under the rules of procedure of Parliament can only be on
the right hand side of the Speaker of Parliament. Those are the seats they had
earned when they came to Parliament and lost upon expulsion.

According to the evidence on record, the Rt. Hon. Speaker reallocated them seats
not on her right hand side but in front of the clerk’s table facing the Speaker.

20 Clearly this was in breach of the rules of procedure of Parliament made under
Article 94 of the Constitution and was therefore unconstitutional.

Earlier, in this judgment, while dealing with issue Nos. 1,4, 5 and 6, we in effect,
also disposed of issue No. 2 above. We followed our earlier decision in the case of
 George Owor vs Attorney General (supra) and held that the said four members
of Parliament vacated their seats in accordance with Article 83(1)(g) of the
Constitution. The Rt. Hon. Speaker, therefore had no power to reallocate them
seats since they were not members of Parliament any more. The ruling of the Rt.
5 Hon. Speaker of 2nd May 2013 to the effect that the four members of Parliament
should retain their seats in Parliament is therefore, inconsistent with and in
contravention of the named constitutional provisions.

In result, we answer issue Nos. 2 and 3 in the affirmative.

We shall deal with issue No.7 later in the course of this Judgment.

10 Issue No. 8

The Rt. Hon Speaker of Parliament received a letter from the Secretary General of
the NRM party informing her of the party’s decision and requesting her to direct
the Clerk to Parliament to declare the seats of the four respondents vacant. The
Secretary General of NRM was asking her to exercise her jurisdiction. The Rt.
15 Hon. Speaker has power under rules 7 and 9 of the rules of procedure of
Parliament to preside over the sittings of the house, to preserve order and decorum
and to allocate seats in the house.

It was in exercise of her jurisdiction under the said rules that she responded to the
request of the Secretary General of NRM political party and also made her ruling
20 on 2nd may 2013.

Our holding in the disposal of issues No.1, 4, 5 and 6 cleared the position of the
seats of the 2nd, 3rd, 4th, and 5th respondents in Parliament.

We find, therefore, that the pronouncement by of the Rt. Hon. Speaker of

Parliament of retaining the 2nd, 3r, 4th, and 5th respondents in Parliament and
 allocating them new seats was unconstitutional, though she was acting within her
powers as Speaker of Parliament to pronounce herself on the matter. We therefore
answer issue No. 8 in the negative.

5 Issues no. 9,10,11,12 and 13.

These issues concern certain acts of the Attorney General which were challenged
as being unconstitutional in Constitutional Petition No.25 of 2013. We shall
handle these issues together as they were argued together in the submissions of
Counsel for the respective parties.

10 Counsel Peter.M.Walubiri for the Petitioner in Constitutional Petition No 25/2013

submitted, inter alia, that the Attorney General is the Principal legal advisor to
Government, but his advice is generally required in respect of contracts and
agreements under Article 119(5) of the Constitution. According to him, the
Attorney General’s advice is also required in respect of Government defined in a
15 narrow sense which covers ministers and civil servants working under them as part
of the Executive. He was supported on this by counsel for the 2 nd, 3rd, 4th and 5th
respondents.

Counsel for the Petitioners in Constitutional Petition Nos.16, 19, and 21 and
counsel for the Attorney General/cross Petitioner in Constitutional Petition No. 25
20 of 2013, submitted that the Attorney General rightly advised the Rt. Hon Speaker
of Parliament in exercise of his Constitutional mandate under Article 119 of the
Constitution. That the Legislature is one of the organs of Government that the
Attorney General is constitutionally mandated to advise.
 Resolution of Issue Nos. 9,10,11,12 and 13

The Attorney General (AG)’s office is a creature of Article 119 of the Constitution
and his/her role is defined in clause (3) which provides:-

5 119 (1)…

(2)…

(3)… “the Attorney General shall be the principal

legal advisor of the Government”.

Article 119(4) lays out the functions of the Attorney General.

10 The Supreme Court Considered the role of the Attorney General in Bank of
Uganda vs Banco Arabe Espanol, Civil Appeal No.1 of 2001.

It was analysing a situation where the Attorney General had given an opinion in
respect of a contract between the Bank of Uganda and a third party. The Supreme
Court, in the judgment of Justice G.W.Kanyeihamba JSC, (as he then was), with
15 which the other Justices concurred, held;

“In my view, the opinion of the Attorney General as

authenticated by his own hand and signature regarding the
laws of Uganda and their effect or binding nature on any
agreement, contract or other legal transaction should be
20 accorded the highest respect by government and public
institutions and their agents. Unless there are other agreed
conditions, third parties are entitled to believe and act on
that opinion without further enquires or verifications. It is
 also my view, that it is improper and untenable for the
Government the Bank of Uganda or any other public
institution or body in which the Government of Uganda has
an interest to question the correctness or validity of that
5 opinion in so far as it affects the rights and interests of third
parties.”

At this stage, it is worth noting the contents of Article 162(2) of the Constitution.

“In performing its functions, the Bank of Uganda shall

conform to this Constitution but shall not be subject to the
10 direction or control of any person or Authority.”

The Bank of Uganda is an independent institution but according to the Supreme

Court, the Attorney General has the duty and mandate to advise the Bank as an
institution of Government. The court held that the Attorney General’s opinion

“should be accorded the highest respect by such a public

15 institution.”

We note that this is

“in so far as that opinion affects the rights and interests of

third parties,”

It would be

20 “improper and untenable for the Bank or any other

government institution to question the correctness or
validity of that opinion.”
 The Supreme Court had occasion again to consider and pronounce itself on the
mandate of the Attorney General in Civil Appeal No. 06 of 2008 Gordon Sentiba
and 2 others and the Inspectorate of Government(supra) and later in
Constitutional Application No.53 of 2011 Parliamentary Commission and
5 Twinobusingye Severino and the Attorney General (supra). The Court held:-

“All legal proceedings by or against the Government are

instituted by or against the Attorney General.”

The Court quoted its decision in Gordon Sentiba and Others vs IGG, (Supra) in
which it held:

10 “It is trite law that the Attorney General is the principal

legal advisor to Government as provided for in Article
119(3) of the Constitution and that the legal opinion of the
Attorney General is generally binding on government and
public institutions like the respondent (IGG). Therefore,
15 the respondent is not correct in submitting that it can
intervene or take over a case where the Attorney General
has decided not to take action in order to prevent the
Government from losing colossal sums of money. The
respondent is a creature of the Constitution and statute and
20 its functions and powers are clearly laid down in those legal
instruments…”

We therefore find and hold that Articles 119 and 250 of the
Constitution and the above decisions set out the correct
legal position regarding the function of the office of the
25 Attorney General.”(sic)
 This Court also, had occasion to consider the powers and role of the Attorney
General. On the issue of whether the Attorney General could advise the Electoral
Commission and whether such advice was binding, this Court in Constitutional
Petition No.1 of 2006 Kabagambe Asol and 2 Others versus The Electoral
5 Commission and Dr. Kiiza Besigye(supra) held:-

“First, we do not accept that the Electoral Commission is

subject to the “direction or control” of the Attorney
General or any other authority. It is an independent public
institution subject to some other provisions of the
10 Constitution. Article 119 of the Constitution is not one of
them. There are other provisions, for example relating to
powers of the judiciary and the legislature to which Article
62 of the Constitution is subject. The 1995 Constitution
created many other independent institutions e.g. the Human
15 Rights Commission, the Judicial Service Commission, the
Public Service Commission e.t.c which can be advised by
the Attorney General but are not bound to follow his advice.
It would indeed be absurd if Article 119 of the Constitution
was construed to mean that the courts of law of this
20 country, which are the third arm of the state, are bound by
the advice of the Attorney General. Article 128 (1) of the
Constitution is very clear and instructive.

…In the instant case, we are dealing with the powers of the
Attorney General under Article 119 of the Constitution visa
25 àvis Article 62 of the Constitution which vests the Electoral
Commission with independence.
 Lastly, there is no doubt that the Attorney General is the
principal legal advisor to government. The English meaning
of the words “advise, advice and advisor” are common
knowledge to anyone with some knowledge of the English
5 language. No advice can be binding on the entity being
advised. In the judgement of the court, we stated;

“Though the Attorney General is the principal advisor of

Government, the Constitution does not provide anywhere
that such advice amounts to a directive that must be obeyed.
10 In case of the Electoral Commission, it can seek, receive and
accept or reject the advice of the Attorney General.”

What is clear from the cases above quoted is that the Attorney General as principal
legal advisor to government is mandated to advise all government institutions
including independent institutions like the Bank of Uganda. The Attorney
15 General’s advice should be accorded the highest respect by public institutions
including the constitutionally independent ones like the Bank of Uganda, and the
IGG.

According to Kabagambe Asol and another vs The Electoral Commission

(supra) the advice of the Attorney General to independent institutions of
20 Government may be sought and may be given by the Attorney-General but such
advice does not constitute commands from the Attorney General. Independent
institutions could receive the advise and study the same and after due
consideration, accept the advice or respectfully disagree with the advice.

We wish to clarify that this Court, in Kabagambe Asol and another vs the
25 Electoral Commission(Supra), was handling a case specifically in respect of
 advice given by the Attorney General to an independent institution which is
constitutionally insulated and declared to be independent by the Constitution. The
advice being considered was in respect of performance of functions of the
constitutionally independent institution.

This Court made it clear, and held:-

“…in the instant case, we are dealing with the power of the
Attorney General under Article 119 of the Constitution visa
vis article 62 of the Constitution which vests the Electoral
10 Commission with independence.”

In the petitions before us we have not found a provision the equivalent of Article
62 in reference to Parliament. This distinguishes this case from that of
Kabagambe Asol and another versus The Electoral Commission (Supra)

In Gordon Sentiba and 2 others and Inspectorate of Government (supra) and

15 the Parliamentary Commission and Twinobusingye Severino and the Attorney
General (supra), the Supreme court was considering the advice of the Attorney
General in relation to organs of Government Generally, and in a situation similar to
the one in these Petitions. We find that we are bound to follow the Supreme Court
holding in the quoted cases.

20 Therefore, the Attorney General as principal legal Advisor of Government is

mandated to advise Government and all Government organs and public institutions
including the Legislature and the Rt.Hon.Speaker of Parliament his advise is
generally binding.
 In exercise of that mandate, the Attorney General would not be acting
unconstitutionally when he/she offers legal advice to the Rt. Hon. Speaker of
Parliament.

Should this Court intervene in such a case and determine the propriety of the
5 Attorney General’s exercise of powers given to him by the Constitution? The
Supreme Court considered such an issue and offered guidance in Attorney
General versus Major General Tinyefuza Constitutional Appeal No.1 of 1997.
on page 11 G.W.Kanyeihamba, JSC (as he then was), held:

“Finally, I wish to comment on another principle which

10 often crops up in adjudicating petitions of this kind. That
principle concerns the extent to which Courts should go in
interpreting and concerning themselves with matters which
are, by the Constitution and law, assigned to the
jurisdictions and powers of Parliament and the Executive...
15 the rule appears to be that Courts have no jurisdiction over
matters which are within the Constitutional and legal
powers of the legislature or the executive. Even in cases,
where Courts feel obliged to intervene and review legislative
measures of the legislature or administrative decisions of
20 the executive when challenged on the grounds that the
rights or freedoms of individuals are clearly infringed or
threatened, they do so sparingly and with the greatest of
reluctance.

…The province of the Court is solely to decide on the rights

25 of individuals, not to inquire how the executive, or executive
 officer, perform duties in which they have discretion.
Questions (which are) in their nature political or which are
by the Constitution and Laws, submitted to the executive
can never be made in this Court.

5 …Courts, and especially the Supreme Court, are not the

only actors on the Constitutional stage is equally applicable
to Uganda. The Constitution provides that the
Constitutional platform is to be shared between the three
institutional organs of Government whose functions and
10 powers I have already described (supra). The Uganda
Constitution recognises these organs as the Parliament, the
Executive and the Judiciary. It was not by accident either
that it created, described and empowered them in that
order of enumeration. Each has its own field of operation
15 with different characteristics and exclusivity and meant by
the Constitution to exercise it powers independently. The
doctrine of separation of powers demands and ought to
require that unless there is the clearest of cases calling for
intervention for the purpose of determining
20 constitutionality and legality of action or the protection of
the liberty of the individual which is presently denied or
imminently threatened, the Courts must refrain from
entering arenas not assigned to them either by the
Constitution or laws of Uganda. It cannot be over-
25 emphasised that it is necessary in a democracy that Courts
refrain from entering into areas of disputes best suited for
 resolution by other government agents. The Courts should
only intervene when those agents have exceed their powers
or acted unjustly causing injury thereby.”

In the instant case we do not find any cause to fault the Attorney General in the
5 exercise of his constitutional powers.

The Attorney General was acting within his powers under Article 119 of the
Constitution. It was neither contrary nor in contravention of the Constitution. We
therefore, answer issue Nos. 10 and 12 in the negative.

Issue No.9 arises from the act of the Attorney General giving advice to the Rt.
10 Hon. Speaker of Parliament to the effect that the only persons who could sit in
Parliament under a multi-party political system are members of political parties
and representatives of the army and this was challenged for being inconsistent with
and in contravention of Article 78 of the Constitution.

Article 78 defines the composition of Parliament.

15 The enlisted members in Article 78(1) (a)(b)(c) and (d) are more than what was
covered in the relevant Attorney General’s advice to the Rt. Hon. Speaker.

The Attorney General’s representative Mr. Chebroin Barishaki, submitted that the
advice was in reference to the respondent Members of Parliament and thus in the
context of the expulsion of directly elected Members of Parliament. Further, that
20 as such there was no need for the Attorney General to refer to the other category of
Ex-officio members under Article 78(1) (d). The Attorney General’s letter did not
refer to all the categories of the members of Parliament as contained in Article 78
of the Constitution.
 Our appreciation of the Attorney General’s advice to the Rt. Hon. Speaker is that it
was not comprehensive on the content of Article 78 of the Constitution. Whether
the Attorney General’s explanation that he did not have to refer to the whole article
is satisfactory to this Court or not, is in our considered view, not an issue for
5 constitutional interpretation. The Attorney General was giving advice in the
exercise of his constitutional powers.

We therefore answer issue No.9 in the negative.

Issue No.11

10 We have already found that the Attorney General has the Constitutional mandate to
the advise the Rt. Hon. Speaker. The advice to the Rt.Hon.Speaker was in respect
of the Attorney General’s understanding of Article 83(1)(g) of the Constitution.
His opinion was that the 2nd, 3rd, 4th and to 5th respondents stay in Parliament after
their expulsion from their Party was inconsistent with and in contravention of
15 Article 83(1)(g) of the Constitution.

He restricted his opinion on the matter to the interpretation of Article 83(1)(g).

The Attorney General did not extend his opinion to cover Article 86(1)(a) of the
Constitution. We find Article 86(1)(a) of the Constitution inapplicable to the
situation pertaining to the instant consolidated constitutional petitions.

20 Article 86(1)(a) provides:

“The High Court shall have jurisdiction to hear and

determine any question whether (a) a person has been
validly elected a member of Parliament or the seat of a
member of Parliament has become vacant.”
 This article provides for, inter alia, the jurisdiction of the High Court.

The Article is primarily concerned with the validity of an election process that
leads to a person being elected to Parliament.

The Supreme court had occasion to consider the provisions of Article 86 of the
5 Constitution in Baku Raphael Obudra and another and the Attorney General.
Constitutional Appeal No. 1 of 2005 Justice Tsekooko, JSC held:-

“Article 86 is concerned with consequences of elections.

…thus in clause (1) the Article confers on the High Court

10 jurisdiction to hear and determine disputes arising from the
election of the members of Parliament, the Speaker and the
Deputy Speaker of Parliament.”

Justice Katureebe JSC explained that using Article 86

“the framers of the Constitution decided to provide for how

15 questions arising from a Parliamentary election are to be
handled and who handles them.”

Justice Mulenga JSC held:-

“The clear objective of Article 86 is to vest jurisdiction by

stating the fora by which disputes arising from
20 parliamentary elections are to be resolved. The Article
clearly states it is to be by the High Court, and in case of a
party aggrieved by its decision by the court of Appeal.”
 This is neither the issue upon which the Attorney General was giving advice nor is
it an issue with which the Petitions before us are concerned.

The instant consolidated constitutional Petitions and the interlocutory applications

arising therefrom are concerned with different circumstances. They are in respect
5 of validly elected members of Parliament vacating/losing their seats in Parliament
in circumstances that differ from those covered by Article 86(1)(a) of the
Constitution.

It was submitted that it was only the High Court which had the power to declare a
seat of a member of Parliament vacant under Article 86(1)(a).

10 We disagree. A matter necessitating the interpretation of Article 86(1)(a) could

appropriately be placed before the Constitutional Court. During the resolution of
the controversy between the parties, the Constitutional Court may find it
appropriate to grant a remedy under Article 137(4) of the Constitution. The
remedy or remedies this Court may grant might include declaring the seats of the
15 concerned MPs vacant. The Jurisdiction in Article 86 of the Constitution,
therefore, is not exclusively the preserve of the High Court.

This Court will not condemn the Attorney General as having unconstitutionally
given advice to the Hon. Rt. Speaker contrary to a Constitutional provision on
which the Attorney General, never gave his advice to the Rt. Hon Speaker. The
20 advice the Attorney General gave to The Rt. Hon. Speaker of Parliament was not
contrary to and did not contravene the provisions of Article 86(1)(a) of the
Constitution.

We therefore answer issue No.11 in the negative.

 Issue No.13.

It was submitted by Counsel Peter. M. Walubiri that once Constitutional Petition

No. 16 of 2013 in which the Attorney General was the 1 st Respondent was in court,
the act of the Attorney General advising the Speaker of Parliament to reverse her
5 ruling on whether the seats of the expelled Members of Parliament are vacant when
the said ruling is subject to Courts interpretation is inconsistent with and in
contravention of Article 137 of the Constitution. Article 137 of The constitution
creates the Constitutional Court. The Article defines the jurisdiction, the
composition, powers, processes, procedures and a number of other matters that
10 affect that Court.

The advice the Attorney General gave to the Rt. Hon. Speaker of Parliament was in
exercise of his constitutional powers under Article 119 of the Constitution. In
offering advice to Government, the Attorney General would study and interpret
the laws and the Constitution.

15 The Attorney General as the Principal legal advisor to Government is competent to

advise Government, before and after, suits are filed in courts of law. The power of
the Attorney General to Advise Government on legal matters under Article 119 of
the Constitution is not limited to any specific areas or time. The situation is not
different in respect of matters that arise under Article 137 of the Constitution. The
20 advice would not interfere with or in any way take away the powers of the
Constitutional Court guaranteed by Article 137. We, therefore, answer issue No.13
in the negative.
 Issue No. 7

We shall now deal with issue No. 7 which was framed by court in the following
terms:-

5 Whether the court should grant a temporary injunction stopping the said members
of Parliament from sitting in the House pending the determination of these
Constitutional Petitions.

On the 6th September 2013, by a majority of four, (4) to one (1), this court granted
the Petitioner /Applicants a mandatory injunction in the above Constitutional
10 Petitions and Applications under this issue.

We reserved our full reasons for that grant until the Court would deliver its
judgment in the said Petitions and Applications. We shall now give those reasons
after a recap of the submissions of counsel for the respective parties.

15 Submissions by counsel for the Petitioner/Applicants

Counsel for the Petitioner /Applicants submitted that the application for the
mandatory injunction they prayed court to grant was grounded in Sections 64 and
98 of the Civil Procedure Act, Rule 2(2) of the Judicature (Court of Appeal
Rules, S.I 13-10, Rule 23 of the Constitutional (Petitions and Reference) Rules,
20 S.I No.91 of 2005 and Article 126(2) of the Constitution.

They emphasized that there was urgent need for court to bar the 2 nd, 3rd, 4th and 5th
respondents from continued stay in Parliament and from participation in the
proceedings of the House unconstitutionally.
 Counsel submitted that the Rt. Hon. Speaker of Parliament, having previously
participated in the proceedings of the NRM Central Executive Committee, (CEC),
as its member, which party organ determined the fate of the Respondents, acted in
contravention of the principles of natural justice when she went ahead and ruled on
5 2nd May 2013 over the matter of the 2 nd, 3rd 4th and 5th respondents having vacated
their seats in Parliament. It was counsel’s further submission that the said ruling
of the Rt. Hon. Speaker undermined the sovereignty of the people and the
supremacy of the Constitution of the Republic of Uganda in contravention of
Articles 1, 2 of the same.

10 They contended that the Rt. Hon. Speaker’s ruling and the continued stay of the
2nd, 3rd, 4th and 5th respondents in Parliament resulted in irreparable and, grave
damage and harm to the Petitioner/Applicants which could not be compensated by
way of damages. Counsel contended further that according to the
Petitioner/Applicant’s pleadings and the evidence on record, they had raised
15 serious issues for constitutional interpretation. They strongly argued that the case
for the Petitioner/Applicants established a status quo that warranted the grant of a
mandatory injunction. To them, the balance of convenience lay in favour of the
Petitioner/Applicants to whom a greater risk of injustice, if the remedy applied for
was not granted, lay as opposed to the 2nd, 3rd 4th and 5th respondents.

20 In conclusion, counsel submitted that the Petitioner/Applicants had satisfied all the
necessary conditions for the grant to them of the mandatory injunction they had
prayed for.
 Submissions for counsel for the 2nd, 3rd, 4th and 5th respondents in
Constitutional Application14 and 21 of 2013 and counsel for the Petitioner in
Constitutional Petition No. 25 of 2013

Counsel for the 2nd, 3rd, 4th and 5th respondents, with whose submissions counsel for
5 the Petitioner in Constitutional Petition No. 25 of 2013 associated himself,
vehemently opposed the application. They contended that mandatory injunctions
were unknown in the constitutional jurisprudence of this country. Counsel
submitted that if granted, the mandatory injunction would wholly settle the matters
in controversy between the parties in the instant Petitions and Applications yet, all
10 that was left was for the court to come out with its judgment in the matter. They
contended further that the Petitioner/Applicants had not pleaded the mandatory
injunction they prayed for. To them, there was no status quo for the court to
preserve.

It was counsel for the 2nd, 3rd 4th and 5th respondents’ further submission that the
15 said respondents are accountable to Parliament and not to the NRM party and it
would be wrong to require them to temporarily vacate their seats in Parliament.

To counsel, the Petitioner/Applicants had failed to establish any of the required

conditions that would justify court in granting them the injunction they prayed for.

They prayed court to dismiss the Applications.

20

The Court’s further reasons

The following are the further reasons for our decision.

 We were satisfied that the remedy of a mandatory injunction was no stranger to the
law of this land. We found that Sections 64 and 98 the Civil Procedure Act, Cap
71 of the laws of Uganda and Rule 2 (2) of the Judicature (Court of Appeal
Rules directions) S.I.13-10 are a sufficient legal basis for the entertaining by
5 court, of the applications which were also properly brought before Court.

We were then, as we are now, acutely aware that this court in Constitutional
Application No.29 of 2011 Nasser Kiingi Vs Kampala Capital City Authority
and the Attorney General had given a mandatory injunction to the applicant to
restore the peaceable status quo that existed before it had been ousted by the
10 respondents and their agents. But even if the remedy of the mandatory injunction
the respondents prayed court for was to be granted by court for the first time in the
history of the constitutional jurisprudence in this jurisdiction, that should be no
reason for court to refrain from granting the remedy if court considered it
appropriate to do so. There is, in our view, always a first time and that is how
15 precedents are set and how jurisprudence evolves.

We were, therefore, satisfied, that there was then need to bar the 2 nd, 3rd, 4th and 5th
respondents from their continued unconstitutional acts of stay in Parliament and
participation in its activities given the clear provisions of Article 83 (1) (g) of the
Constitution. The said continued stay and participation undermined then, as it still
20 undermines to-day, the peoples’ sovereignty and the supremacy of the Constitution
contrary to the provisions of Articles 1 and 2 thereof.

We accepted the Petitioner/Applicant’s counsel’s contention that the Rt. Hon.

Speaker of Parliament, having participated in the proceedings of the National
Executive Committee, NEC, of the NRM party which determined the fate of the
25 2nd, 3rd, 4th and 5th respondents by dismissing them from the party, should have
 disqualified herself from presiding over the proceedings in Parliament where she
eventually ruled as she did on the 2nd day of May 2013.

The Rt. Hon Speaker of Parliament by so presiding over the matter the subject of
the instant Constitutional Petitions/ Applications was in effect, a judge in her own
5 cause, contrary to the principles of natural justice. This offended Articles 28 and
42 of the Constitution.

We were satisfied, therefore, that the Petitioner/Applicants had, even only that far,
established a strong primafacie case with a high probability of success. See
Humphrey Nzeyi v Bank of Uganda & others Constitutional Application
10 No.39 of 2012 and the decision of Supreme Court of Canada in R.J Macdonald
Inc Vs Canada Attorney General) R.J.R which cases are binding and highly
persuasive respectively. The decision that the Rt. Hon Speaker of Parliament
reached and pronounced in the matter in those circumstances could be successfully
challenged as being no decisions at law. See De Souza Vs Tanga Town Council,
15 Civil Appeal No. 89 of 1960 reported in1961 EA 377 at page 388 where the East
African Court of Appeal held;

“If the principles of natural justice are violated in

respect of any decision, it is indeed immaterial
whether the same decision would have been arrived at
20 in the absence of the departure from the essential
principles of justice. That decision must be declared
to be no decision.”

The controversy between the parties to the consolidated Constitutional Petitions

and the two application Nos. 14 and 23 of 2013 have raised serious issues of
25 constitutional interpretation as to whether, when the 2 nd, 3rd, 4th and 5th respondents
 were expelled from the NRM political party, the party for which they stood as
candidates for and for which they were elected as members of Parliament, or when
they ceased to be members thereof, they left Parliament and therefore vacated their
seats. The constitutionality of the acts of the Rt. Hon. Speaker of Parliament is
5 also questioned. These, together with other matters involved in the instant
Petitions and Applications before the court, we found to be serious matters and that
the applications were neither frivolous nor vexatious.

Whether the injunction granted is classified as prohibitive or mandatory, we find

arguments in that direction barren. What matters is of what practical consequence
10 the injunction is likely to be. See Films Rover International Ltd Vs Cannon
Films Sales Ltd 1987 I WLR 670.

The principle to guide court in whatever course to take was what is likely to cause
the least irremediable prejudice to one party or the other. See National
Commercial Bank Vs Orient Co-operation Ltd Jamaica of 2009 UKPC. See
15 also American Cynamid [1975] AC 396. The most important consideration for
court to bear in mind in cases of this nature is as to which of the parties bore the
greater risk of suffering injustice if the remedy sought was to be withheld by court.

We gave full attention to the question of whether there was a status quo that the
issuing of a mandatory injunction would preserve. At the time of the granting of
20 the injunctive order, we held that view. The peaceable status quo immediately
prevailing before the situation giving raise to the dispute among the parties herein
was that the 2nd, 3rd, 4th and 5th respondents had vacated their seats in Parliament by
operation of the law. Since the said vacation of seats, the 2 nd, 3rd, 4th and 5th
respondents had remained in Parliament in highly constitutionally questionable
25 circumstances. We found it necessary to grant a mandatory injunction to restore
 the said peaceable status quo as at the said material time. See Shepherd Homes
Ltd vs Sandham [1971]CH 340 at 404. We went ahead and did exactly that on the
6th September 2013. It is, in our considered view, and we so hold, that it is
immaterial that the mandatory injunction we granted substantially addressed the
5 matter in controversy between the parties. This is permissible in law. In proper
cases, mandatory injunctions do that. In the case of Woodford & Anor v Smith
& Anor [1970] 1 All ER1091 Megarry J held:

“I do not think that there is anything to prevent the court in

a proper case from granting on motion substantially all the
10 relief claimed in the action. It is true that in Dodd v
Amalgamated Marine Workers’ Union(1923)93 LJCh at
66,129 LT at 402 it was said in the Court of Appeal that it
was not the ‘usual practice’ or the ‘general rule of practice’
to grant on motion all the relief claimed in the action. But
15 this language is general rather than absolute, the judgments
are very brief, no reasons are given, and there have been
later decisions. Thus in Bailey (Malta) Ltd v Bailey [1963] 1
Lloyd’s Rep 595 at 598, Lord Denning MR flatly said that it
seemed to him that there was ‘no such rule’. In this, he
20 based what I may call a reasoned demolition of the
supposed rule, the basis of which seems to have been an
objection to trying the same point over. In the Bailey case
Harman LJ referred to the supposed rule as a theory which
had in his view ‘long been exploded’...Plainly in the present
25 case the objection which counsel for the defendants raised
but did not press is no obstacle to granting the injunction
 sought. In my judgment, looking at the case as a whole,
there are no grounds on which the court should refuse to
grant an injunction.”

Also, in the case of Despina Pontikos [1975]1 E.A 38,the Court of Appeal of
5 Kenya cited the case of Bailey (Malta) v Bailey [1963]1 Lloyd Rep.595,holding
that a mandatory interlocutory relief can be granted even if it is in substance a
settlement of the whole relief claimed in the main action.

We felt sufficiently fortified by the above authorities in our deliberate demolition

of the general restrictive rule on injunctions as a theory that had been long
10 exploded and had no place in the instant Constitutional Petitions and Applications.
We, therefore saw no ground on which the court should have refrained from
granting the mandatory injunction prayed for.

We were persuaded by the submissions of counsel for the Applicant/Petitioners

and that of the Petitioner in Constitutional Petition No. 19 of 2013 that the acts and
15 the conduct of the 2nd, 3rd,4th and 5th Respondents and the acts, of the Rt. Hon.
Speaker of Parliament complained of, those of the 2 nd, 3rd, 4th and 5th respondents
and their conduct would set a wrong precedent and promote indiscipline, mayhem,
impunity, hypocrisy, opportunism, lack of accountability to the people, all of
which amount to an affront on the sovereignty of the people and supremacy of the
20 Constitution as provided for in Articles 1 and 2 of the Constitution.

The voting pattern of the NRM party in Parliament was also distorted. We found it
immaterial that the distortion was due to a mere 4 errant members of that party in
Parliament. In a multiparty political dispensation, even a distortion caused by a
single vote is grave harm to the affected political party. The New Zealand case of
25 SC CUV 9/2004; Richard William Prebble, Ken Shirley, Rodney Hide &
 Muriel Newman & Donna Awatere Huata is very pertinent and instructive. The
cumulative effect of all this, we were satisfied, was more than harm and irreparable
damage to the NRM party.

Another most compelling reason that persuaded us to grant the

5 Petitioner/Applicant’s the rare remedy of a mandatory injunction they prayed for
even when all that was left was for Court to pronounce its final judgment in the
Constitutional Petitions before it, was the glaring illegality of an unconstitutional
nature that was so clearly exhibited in the impugned acts and omissions of the Rt.
Hon. Speaker of Parliament, those of the 2nd, 3rd, 4th and 5th respondents and their
10 conduct directed against the sovereignty of the people and the supremacy of the
Constitution. The impugned acts, omissions and conduct signified to court a
possible beginning of a most dangerous and highly undesirable development that
could lead to an effective overthrow of the constitutional order that the people of
Uganda established for themselves and their posterity through the promulgation of
15 the 1995 Constitution. A constitutional order established by the people recalling
their history that had been characterized by grave political and constitutional
instability. A people that recognized their bitter struggles against the forces of
tyranny, oppression and exploitation in their society. A people who ordained for
themselves the duty, at all times, to defend their Constitution. In our very
20 considered opinion, this court would not sanction such an illegality once it was
brought to its attention, see Makula International Vs Cardinal Nsubuga
Wamala [1982] HCB 11. For each day that would go by without court curbing
that illegality would, in our view, be a day too many. The situation , in our very
considered opinion called for immediate containment in the most cost effective
25 manner through appropriate judicial orders, if only to forestall, even the mere
contemplation by anybody, of exploring other possible ways of defending the
 mutually agreed upon constitutional order of this country as envisaged in Article
3(4) of Constitution. We found it necessary to instantly stop that illegality which
to us signaled a possible return to anarchy, impunity and lack of accountability by
the leaders in our society to the people. This prompted us to grant the rare remedy
5 of a mandatory injunction, even though in the interim.

The above are our full reasons for the orders of the 6 th September 2013. We find
those reasons valid today and sufficient to warrant our answering issue No.7 in the
affirmative, as we indeed hereby do.

Following our findings, on the above 13 issues, and since our sister Lady Justice
10 Faith Mwondha JA/CC agrees, with only our brother Justice Remmy Kasule
dissenting, we, by a majority of four to one grant Constitutional Petition Numbers
16, 19, 21 and the Cross Petition in Constitutional Petition No. 25 of 2013.
Constitutional Petition No. 25 of 2013 is dismissed.

On the 6th September 2013 we granted Constitutional Applications No. 14 and 25

15 of 2013 for which we have given our full reasons above.

In the result, we declare that:

1. The expulsion from a political party is a ground for a member of

20 Parliament to lose his/her seat in Parliament under Article 83(1)(g) of
the Constitution.

2. The act of the Rt. Hon. Speaker in the ruling made on the 2 nd of May
2013, to the effect that the four Members of Parliament who were
 expelled from the National Resistance Movement (NRM), the party for
which they stood as candidates for election to Parliament should retain
their respective seats in Parliament is inconsistent with and in
contravention of Articles 1(1)(2)(4), 2(1) 20(1)(2), 69, 71, 72, 74, 78(1),
5 79(3), 81(2), 83(1)(g),83(3) of the Constitution of the Republic of
Uganda.

3. The Rt. Hon. Speaker of Parliament in her communication to the House

on the 2nd day of May 2013, created a peculiar category of Members of
10 Parliament unknown to the Constitution and contrary to Articles 1(1)
(2)(4), 2(1)(2), 20(1)(2), 21, 43(1)(2)(c), 4, 69, 7, 73, 77(1)(2), 78(1), 79(3),
80, 81(2), 83(1)(g)(h), 83(3) of the Constitution.

4. The continued stay in Parliament of the 2 nd, 3rd, 4th and 5th respondents
15 as Members of Parliament after their expulsion from the NRM party
on whose ticket they were elected is contrary to and inconsistent with
Articles 1(1), 2(1), (2)(4), 29(1)(e), 69(1), 72(1), 72(4), 78(1)(a) and 79(3)
of the Constitution.

20 5. The said expelled Members of Parliament who left and or ceased being
members of the Petitioner (Constitutional Petition No. 21/2013) vacated
their respective seats in Parliament and are no longer members of
Parliament as contemplated by the Constitution.

25 6. The Rt. Hon. Speaker had Jurisdiction and a duty to make a ruling on
the matter before the House but she discharged the said duty
 unconstitutionally in contravention of the Constitution notably Articles
28 and 42 thereof.

7. The act of the Attorney General of advising on persons who can sit in
5 Parliament under a multiparty political system, in the context and
peculiar circumstances of the instant Constitutional Petitions was not
inconsistent with nor in contravention of Article 78 of the Constitution.

8. The act of the Attorney General of advising that after their expulsion
10 from the NRM party, Hon. Theodore Ssekikubo, Hon. Wilfred
Niwagaba, Hon. Mohammed Nsereko and Hon. Barnabas Tinkasimire
are no longer members of Parliament, is neither inconsistent with nor in
contravention of Article 83(1) (g) of the Constitution.

15 9. The act of the Attorney General of advising the Right Honourable

Speaker of Parliament to declare the seats of Hon. Theodore Ssekikubo,
Hon. Wilfred Niwagaba, Hon. Mohammed Nsereko and Hon. Barnabas
Tinkansimire in Parliament, became vacant on their expulsion from the
NRM party was neither inconsistent with nor in contravention of
20 Article 86 (1) of the Constitution.

10.The act of the Attorney General of advising the Right Honourable

Speaker of Parliament to reverse her ruling regarding the seats of Hon.
Theodore Ssekikubo, Hon. Wilfred Niwagaba, Hon. Hon. Mohammed
25 Nsereko and Hon. Barnabas Tinkansimire in Parliament was neither
 inconsistent with nor in contravention of Article 119 of the
Constitution.

11.The act of the Attorney General of advising the Rt. Hon. Speaker of
5 Parliament to reverse her ruling on whether the seats of Hon. Theodore
Ssekikubo, Hon. Wilfred Niwagaba, Hon. Mohammed Nsereko, and
Hon. Barnabas Tinkansimire, are vacant when the said ruling was the
subject of the court’s interpretation in Constitutional Petition No. 16 of
2013, where the Attorney General is the first respondent was neither
10 inconsistent with nor in contravention of Article 137 of the Constitution.

Court Orders
15

The court orders as follows:

20 1. The 2nd, 3rd, 4th and 5th respondents are hereby ordered to vacate their
seats in Parliament forthwith.

2. The Electoral Commission is directed following the service to it of a

copy of this judgment by the 1 st respondent to conduct by elections in
25 the constituencies hitherto represented by Hon. Theodore Ssekikubo,
Hon. Wilfred Niwagaba, Hon. Mohammed Nsereko, and Hon. Barnabas
Tinkansimire in accordance with the electoral laws of this Country.
 3. A Permanent Injunction is hereby issued restraining the Rt. Hon.
Speaker and the Rt. Hon. Deputy Speaker of Parliament from allowing
the 2nd , 3rd, 4th and 5th respondents to continue sitting in Parliament or
5 to take part in any parliamentary activity or any of its committees and
to stop payment to the 2nd, 3rd, 4th, and 5th respondents of any salaries,
allowances, other emoluments and entitlements, save those that may
have accrued to them immediately before the issuance of these orders.

10 4. The mandatory injunction issued by this court on 10 th September 2013

is hereby vacated.

5. We grant costs to the successful parties in the consolidated

15 Constitutional Petitions and applications with a Certificate for two
Counsel.
We so order.

Dated at Kampala this 21st day of February 2014.

20

Hon. S.B.K Kavuma

AG. DEPUTY CHIEF JUSTICE/PCC,

25
Hon. A.S Nshimye
JUSTICE OF APPEAL/JCC,
 Hon. Remmy Kasule
JUSTICE OF APPEAL/JCC,

Hon. Faith Mwondha

JUSTICE OF APPEAL/JCC,

10
Hon. Richard Buteera
JUSTICE OF APPEAL/JCC,

15

THE REPUBLIC OF UGANDA

IN THE CONSTITUTIONAL COURT OF UGANDA AT KAMPALA.

(1) CONSTITUTIONAL PETITION NO. 16 OF 2013

1. HON. (RTD) SALEH M.W.KAMBA
20 2. MS. AGASHA MARY :::::::::::::::::::::::PETITIONERS
VERSUS
(1) ATTORNEY GENERAL
(2) HON. THEODRE SSEKIKUBO
(3) HON. WILFRED NIWAGABA :::::::::::::::::::::RESPONDENTS.
25 (4) HON. MOHAMMED NSEREKO
(5) HON. BARNABAS TINKASIMIRE
(2) CONSTITUTIONAL PETITION NO. 21 OF 2013
 NATIONAL RESISTANCE MOVEMENT ::::::::::::::::::PETITIONER

VERSUS

(1) ATTORNEY GENERAL

(2) HON. THEODRE SSEKIKUBO
5 (3) HON. WILFRED NIWAGABA ::::::::::::::::::RESPONDENTS.
(4) HON. MOHAMMED NSEREKO
(5) HON. BARNABAS TINKASIMIRE
(3) CONSTITUTIONAL PETITION NO. 19 OF 2013

JOSEPH KWESIGA ::::::::::::::::::::::::::::::::::::::PETITIONER

10 VERSUS

ATTORNEY GENERAL :::::::::::::::::::::::::::::::::::::::RESPONDENT.

(4) CONSTITUTIONAL PETITION NO. 25 OF 2013

HON. ABDU KANTUNTU ::::::::::::::::::::::::::::::::::::::PETITIONER

VERSUS

15 ATTORNEY GENERAL ::::::::::::::::::::::::::::::::::::::::::::::::::RESPONDENT.

CORAM: HON MR. JUSTICE S.B.K KAVUMA AG. DCJ/PCC

HON. MR. JUSTICE A.S NSHIMYE JA/JCC

HON. MR. JUSTICE REMMY KASULE JA/JCC

HON. LADY JUSTICE FAITH E.K. MWONDHA JA/JCC

20 HON.MR.JUSTICE RICHARD BUTEERA JA/JCC

 JUDGMENT OF MWONDHA ,JA/CC

Although I agree with my learned brother Justices of the Court in the majority

Judgment, declarations and orders made therein, I came to the same conclusion for

different reasons in respect of issues, 1, 4, 5&6.

5 For clarity I will reproduce the issues 1, 4, 5 & 6.

(1) Whether the expulsion from a political party is a ground for a Member of

Parliament to lose his or her seat in Parliament under Article 83(1) (g) of the

1995 Constitution.

(4)Whether the continued stay in Parliament of the2nd,3rd,4th and 5th respondents

10 after their expulsion from the NRM party on whose ticket they were elected is

contrary to and or inconsistent with Articles 1(1)(2)(4) ,2(1), 21(1),(2),29(1)

(e),38(1),43(1),45,69(1),71,72(1),72(2),72(4),78(1),79(1)(3) and 255(3) of the

Constitution.

(5) Whether the said expelled MPs who left and or ceased being members of the

15 Petitioner vacated their respective seats in Parliament and are no longer Members

of Parliament as contemplated by the Constitution.

(6) Whether the said expelled MPs vacated their respective seats in Parliament and

are no longer Members of Parliament as contemplated by the Constitution.

 I, also agree that the gist of the issues was whether the expelled members of

Parliament left the party for which they stood and were elected to Parliament and

whether they vacated their seats.

As a Court of first instance in Constitutional matters, I found it important to state

5 the substance of the Petition Nos. 16, 21/2013, CP No. 19/2013 CP No. 21/2013,

C.P No.25/2013 Cross Petition in CP No. 16/2013, and the responses. All

Petitions were brought under Article 137 of the Constitution, and the

Constitutional Court (Petitions & Reference) Rules S.1 91 of 2005 and all enabling

laws. They were consolidated by Court after having been filed separately by the

10 individual Petitioners. Petition No. 21/2013 was filed on 20thMay 2013 by the

Petitioner’s counsel, Mugisha & Co. Advocates & M/s Bakiza & Co. Advocates &

M/S Twinobusingye Severino & Co. Advocates.

It was stated that the Petitioner is a Political party organization established and

registered under the Political parties and organizations Act 2005 and is the Ruling

15 National Political Party and thus having interest in or aggrieved by the following

matters being inconsistent with and/or in contravention of the Constitution of the

Republic of Uganda and contented as follows;-

(1) That the Petitioner has suffered and shall suffer the infringement of its rights

and contravention of the Constitution by the act of the Rt. Hon. Speaker of
 Parliament of the Republic of Uganda in the Ruling made on 2nd May ,2013

to the effect that the four Members of Parliament to wit Hon. Theodre

Ssekikubo, Member of Parliament for Lwemiyaga County, Hon. Wilfred

Niwagaba, Member of Parliament for Ndorwa East Constituency, Hon.

5 Mohammed Nsereko, Member of Parliament for Kampala Central

Constituency and Hon. Barnabas Tinkasimire, Member of Parliament for

Buyaga West Constituency (expelled MPs) who left the National Resistance

Movement, a party for which they stood as candidates for election to

Parliament, should retain their respective seats in Parliament is inconsistent

10 and in contravention with Articles 1(1)(2)(4), 2(1)(2), 20(1)(2)21,43(1)(2)

(c), 45, 69, 70,71,72, 73, 74,77(1)(2),78(1),79, 80,81(2),83(1)(g)(h) and 83

of the Constitution of the Republic of Uganda.

(2) That the act of the Rt. Hon. Speaker culminated in the creation of a peculiar

category of members of Parliament unknown to the Constitution and was

15 inconsistent with and or in contravention of the above stated articles and

ipso fact null and void.

(3) That the expelled MPs who left and or ceased being members of your

Petitioner vacated their seats in parliament as contemplated by the

Constitution.
 (4) That the said expelled MPs who left and or ceased being members of the

Petitioner are now politically wild people, aliens/anonymous/trespassers

with no identity in the Parliament of the Republic of Uganda which is

inconsistent with the above stated articles of the Constitution.

5 (5) That the Rt. Honourable Speaker has no jurisdiction to make a ruling on

such matters and her action was inconsistent with and in contravention of the

above stated Articles.

(6) That the act of the Rt. Hon. Speaker was illegal abinitio and ought not be left

to stand once brought to the attention of this Court.

10 (7) That the Attorney General of Uganda had issued a legal opinion to the effect

that the Rt. Hon. Speaker’s Ruling is illegal and unconstitutional which is

binding on her.

(8) That theimpunged acts of the Rt. Hon. Speaker are inconsistent with and in

contravention of the provisions of the Constitution due to the following

15 reasons:

(a) That the 2nd, 3rd, 4th& 5th respondents who left and or ceased being

members of the Petitioner vacated their seats in Parliament and are no

longer members of Parliament as contemplated under the Constitution.

(b) That the said expelled MPs who left and or ceased to be members of the

20 Petitioner do not have any identity, are not attached to or affiliated to

 any political party recognized by the Constitution of the Republic of

Uganda.

(c) That the parliamentary Seats of the said expelled members of Parliament

fell vacant upon their expulsion from the Petitioner.

5 (d) That the Rt.Hon. Speaker had no jurisdiction to make the ruling as she

purportedly did on such a matter.

(e) That the continued stay of the said expelled MPs in Parliament is an

affront on the multiparty dispensation which was ushered in by Ugandans

in 2005, National Referendum and is bound to breed, impunity,

10 anarchywhich will in the end whittle down representative multiparty

democracy.

(f) That if the Rt. Hon. Speaker’s ruling is left to stand, it will set a

dangerous precedent as it will leave political parties as mere empty

shells instead of being key institutions of representative democracy or

15 as linch pins thereof as provided for in the Constitution.

(g) That if the Ruling of the Rt. Hon. Speaker is allowed to stand, it will lead

to the withering away of political parties and multiparty democracy, the

safe guard for peace, order, security and tranquility the hall mark of the

rule of Law and Constitutionalism.

 (h) That the act of the Rt. Hon. Speaker is illegal abinitio and ought not be

left to stand once drawn to the Court’s attention.

(i) That the peculiar category of members of Parliament purportedly created

by the Rt. Hon. Speaker is not envisaged by the Constitution and is

5 bound to bring confusion and encourage indispline among other

members and shall culminate in anarchy and mayhem.

The petitioner prays that this Honourable Court grants the following

Declarations and orders:

(1) That the act of the Rt. Hon. Speaker of Parliament in ruling that the

10 2nd, 3rd, 4th and 5th respondents who left the Petitioner should retain

their respective Seats in Parliament is inconsistent with and in

contravention of Articles 1(1)(2)(4), 2(1)(2), 20(1)(2), 21, 43(1)(2)

(c),45,69,70, 71,72,73,74,77(1) and (2), 78(1),79,80,81(2), 83(1)(g)

and 83(3) of the Constitution of the Republic of Uganda.

15 (2) That the act of the Rt. Hon. Speaker of creating a peculiar category of

members of Parliament unknown to the Constitution is in

contravention or inconsistent with Articles 1(1)(2)(4),2(1)(2) 20(1)

(2), 21, 43(1)(2)(c), 45, 69,70,71,72,73,74,77(1)

and(2),78(1),79,80,81(2),83(1)(g)(h) &, 83 of the Constitution ipso

20 facto null and void.

 (3) That the 2nd, 3rd, 4th and 5th respondents vacated their respective seats

in Parliament upon expulsion from the Petitioner.

(4) That the respective seats of the 2nd, 3rd, 4th and 5th respondents are

presently legally vacant.

5 (5) That a by-election be conducted by the National Electoral

Commission to fill the respective seats.

(6) That the respondents pay costs of this petition and a certificate for two

counsel be issued.

The Petition is supported by the affidavits of Yoweri Kaguta

10 Museveni, Chairman of the Petitioner and Amama Mbabazi, Secretary

General of the Petitioner and supplementary affidavits with

documents annexed of the saiddeponents respectively,the Petitioner

stated would rely on. The affidavits essentially had the same contents,

so I will state them as follows:-

15 (1) That they were male adult Ugandan citizens of sound mind and the

Chairman and the Secretary General and that they swore the affidavits

in those capacities.

(2) That the 2nd, 3rd, 4th & 5th respondents were nominated as candidates

for election as members of parliament by the Petitioner who

 sponsored their respective candidates in the 2011 as party Members of

Parliament.

(3) That the respondents as above stated stood as candidates for the

Petitioner as the Political party for which they stood for election to the

5 9th Parliament and they were elected as such.

(4) That on or about 14th April 2013 the central Executive Committee

(herein referred to as CEC) of the Petitioner received a report and

proceedings from the party Disciplinary Committee. The said

Disciplinary Committee had found that the 2nd, 3rd, 4th and 5th

10 respondents had acted and or behaved in a manner that contravened

various provisions of the party Constitution. The said party

Disciplinary Committee had decided to expel them from the Petitioner

and the decision was confirmed by the Central Executive Committee

of the party. (Copies of the communique of the central executions

15 committee and the Executive summary) were attached and marked

Annextures “A” & A1

respectively.

(5) That having been expelled the 2nd, 3rd, 4th& 5th respondents left the

petitioner and were no longer its members representing the party nor

20 are they independents in Parliament.

 (6) That the 2nd, 3rd, 4th& 5th Respondents left the Petitioner and they

legally vacated their Seats in Parliament as decided by the Central

Executive Committee. The Secretary General was directed to write to

the Rt.Hon. Speaker informing her to direct the clerk to Parliament to

5 declare the seats of the said members of Parliament vacant so as to

enable the Electoral Commission to organize by –elections in their

respective Constituencies. The copy of the said letter was attached

and marked Annexture “B”.

(7) That on 2nd May 2013 the Right Hon. Speaker made a ruling to the

10 effect that there is no specific Constitutional provisions on expulsion

of members of Parliament by their Political parties leading to the

declaration of their seats in Parliament vacant, and that they should

therefore not vacate their seats. The copy of the Ruling & Hansord

was attached and marked Annexture “C” & “C1” respectively.

15 (8) That they know that by being expelled from the party, the Petitioner

for which they stood as candidates for election to Parliament, and

which party had sponsored their nomination, candidature and election,

the 2nd, 3rd, 4th and 5th respondents, ipso facto vacated their seats in

Parliament.
 (9) That the said Ruling of the Rt. Hon. Speaker and the refusal or failure

to direct that they vacate their seats in Parliament, infringed on the

rights of the party and its members enshrined in Articles 1(1),(2)

(4),2(1)(2),20(1)(2),21,42,43(1)(2)(c),45,69,70,71,72,73,74,77(1) &

5 (2),78(1),79,80,81(2),83(1)(g)(h)& 83(3)of the Constitution of the

Republic of Uganda.

(10) That as a party theyare deprived of their Parliamentary Seats

and those four Constituencies are not currently represented, yet the

electorate preferred the Petitioner’s hitherto flag bearers to represent

10 them.

(11) That they know that there is no way members of parliament

who were nominated, sponsored and elected as candidates of the

Petitioner on the basis of the Petitioners manifesto and ideology can

continue to represent their Constituencies which elected them after

15 they have been expelled from the party on whose ticket they had been

elected.

(12) That they know that the Attorney General has since issued a

legal opinion to the effect that the Rt. Hon. Speaker’s decision to

allow the said expelled MPs to stay in Parliament is illegal and an

20 abuse of the law and is inconsistent with the constitution and other
 pieces of legislation made there under. That they know that the

Attorney General’s opinion is binding on Government and all

Government institutions and agencies and must be respected and

acted on without question (A copy of the Attorney General’s letter

5 was annexed and marked “D”).

(13) That they know that the Ruling of the Right Hon. Speaker of

Parliament infringed on the Petitioners Party structures in as far as it

cannot enforce strict disciplinary measures of its errant and

disobedient members.

10 (14) That they know that one of the factors of our history which led

to Political and Constitutional instability and which was the mischief

the Constitution sought to cure was the action of members of

Parliament crossing the floor of Parliament and leaving a political

party which sponsored them while entering Parliament to another

15 party without seeking a fresh mandate.

(15) That in 1962 the 1st Independent Government of Uganda was an

alliance of two political parties the Uganda Peoples Congress (UPC)

and Kabaka Yekka (KY) while the Democratic Party (DP) formed the

opposition.
 (16) That the UPC assumed power, the then Prime Minister Milton

Obote realizing the danger of having a partner who could any time

cross to another party and effectively bring his government to an end

decided to persuade individual MPs of KY and DP to cross to UPC.

5 (17) That after 1964 the KY/UPC alliance collapsed and several

KY,MPs and DP, MPs crossed from their respective parties to UPC

without submitting themselves to seek fresh mandate such that by

1966 Obote’s UPC had absolute majority in Parliament.

(18) That the then Prime Minister, Milton Obote had succeeded to

10 build a majority in Parliament and accordingly by 1966 he felt strong

enough to abolish the 1962 independence Constitution. This act

plunged Uganda into Constitutional crisis and brought political

instability from which Uganda has suffered for several decades and is

only slowly recovering under the Constitutional dispensation ushered

15 in by the NRM administration.

(19) That they know the people of Uganda promulgated the 1995

Constitution, mindful of the tragic period of our history and inserted

clauses notably Article 83(1)(g) in the Constitution which ensured

that a member of Parliament who leaves the party which had

20 sponsored him and for which he stood for election to Parliament

 either to join another party or to remain in Parliament as an

independent should seek a fresh mandate through a bye election.

(20) That the act of the Rt.Hon. Speaker of Parliament to rule that

the MPs remain in Parliament despite having left the party that

5 sponsored them to Parliament was out of step with the Constitutional

provisions and threaten to drag the Country back to Constitutional

mayhem and political instability.

(21) That they know that given the Constitutional mischief of our

political history and the provisions of the Constitution notably Article

10 83(1)(g) which were meant to heal that mischief there is no way the

four respondents who became Members of Parliament through

nominations, sponsored and elected as candidates of the petitioner on

the basis of the Petitioners manifesto and ideology can continue to

represent their Constituencies after they had left the NRM.

15 (22) That they know that proportionality of a party representation in

Parliament is a hall mark of Multi party political dispensation which

the people of Uganda adopted in 2005 Referendum on political

Systems. That they know that the proportionality of Political party

representation in Parliament as determined by the People of Uganda

20 through the 2011 Parliamentary Elections is distorted by the 2nd, 3rd,

 4th and 5th respondents leaving the NRM, the party they stood for

election and were elected to Parliament.

The 2nd, 3rd,4th and 5th Respondents in their filed reply affidavits tothe Petition,

opposed the Petition Nos. 21/2013, 16/2013,19/2013 and the cross petition of the

5 1st respondent in all petitions. They stated among other things as follows:-

(1) They have never left the party but rather that they were forced out and have

challenged that forceful eviction as distinct from the voluntary act of leaving

and that they have never vacated their seats.

(2) That in Uganda proportionality of party representation is not a hall mark of

10 Political party dispensation as it’s that principle which is distorted by the

presence of the Military in Parliament.

(3) That the rules of procedure as to sitting in Parliament among others is an

internal decision by Parliament and not a Constitutional matter.

(4) That there was a lot of resistance in the House to the bill that sought to

15 amendArticle 83(1) (g) by inserting the word “expulsion” and as a result the

Government withdrew the proposal.

(5) That they verily believe that the framers of the Constitution deliberately left

out “expulsion” from the political party as a ground for vacating a seat in

order to directly protect the rights of Ugandans and not political parties as

20 per Articles 38(1) and 78(1) of the Constitution.

 (6) That they deny being with no known identity in the Parliament as alleged or

at all and that they represent the people of their respective Constituencies in

accordance with Article 78(1) of the Constitution and hence had not

breached any provision of the Constitution.

5 (7) Hon. Theodre Ssekikubo denied having been nominated by the Petitioner to

stand but by one Wamala Muzzanganda Kuwatana and Nakaala Prossy.

That he had never left the Petitioner as his membership fee is being

deducted.

Introduction to Resolution of issues 1,4,5 & 6

10 (1) It was clear from Petition No. 21/2013 that, the Petitioner is a Political

Party/Organization established and registered under the Political Parties

and Organizations Act 2005. It is a body corporate. This gives the

Petitioner the right to allege that any act or omission by any person or

authority is inconsistent with or in contravention of the provision of the

15 Constitution and may Petition the Constitutional Court for a declaration

to that effect and for redress where appropriate as per Article 137(3)(b).

(2) Political Parties/Organizations are creatures of the 1995 Constitution.

The gistof the genesis of Political parties/organizations is evidenced from

the preamble of our Constitution which states the general purpose of the

20 Constitution. It states: “We the people of Uganda recalling our history

 which has been characterized by Political and Constitutional

instability, recognizing the struggles against the forces of tyranny,

oppression and exploitation, committed to building a better future by

establishing a socio economic and Political order through a popular

5 and durable National Constitution on the principles of Unity, Peace,

equality democracy, freedom, socio justice and progress…Do hereby

in and through the Constituent Assembly adopt , enact and

giveourselves and our posterity, this Constitution of the Republic of

Uganda this 22nd day of September, in the year 1995.

10 FOR GOD AND MY COUNTRY.

The preamble stresses the commitment to building a better future through

the popular and durable National Constitution rooted in the principles

of Democracy, Social Justice among others which should be guarded

jealously by all Ugandans.The Courts of law and the Judiciary in the

15 administration of Justice have a duty to exercise judicialpower bearing in

mind that judicial power is derived from the people and exercised by

Courts established under this Constitution in the name of the people and

in conformity with the law and with the values, norms and aspirations of

the people. See Article 126(1) of the Constitution.

 (3) The Constitution provides the National Objectives And Directive

Principles of State Policy Part 1 is on Implementation of Objectives and

provides as follows:

(i) “The following objectives and principles shall guide all organs

5 and agencies of the state, all citizens, organizations and other

bodies and persons in applying or interpreting the Constitution or

any other law and implementing any policy decisions for

establishment and promotion of a just, free and democratic

society.”

10 Political Objectives: Part II: Democratic Principles:- It provides

among others,

(ii)“All people of Uganda shall have access to leadership positions at all

levels subject to the Constitution.

(V) Provides:-“All Political and Civic Associations aspiring to

15 manage and direct public affairs shall conform to the democratic

principles in their internal organizations.”

The Constitution Article 29(1)(e) provides: “ Every person shall

have the right to… (e) freedom of association which shall include

the freedom to form and join associations or Unions including trade

20 unions and Political and other Civic Organizations.”

 Article 69 of the Constitution provides for the 3 types of Political Systems

as hereunder:

5 (1) The people of Uganda shall have the right to choose and adopt a political

Systems of their choice, through free and fair elections or refranda.

(2) The political System referred to in clause (1) of this article shall

include:-

(a) The Movement Political system

10 (b) The Multi party political system and

(c) Any other democratic and representative Political System.”

Article 71 provides : (1) A Political party in the multi Party Political

System shall conform to the following principles (a)…(b) …(c) the internal

Organisation of a Political Party shall conform to the democratic

15 principles enshrined in this Constitution, (See also ii & v Supra-Political

objectives & Democratic principles).

Article 72(1) provides: “Subject to the provisions of this Constitution the

right to form Political Parties and any other Organisationis guaranteed.

 (2) An organisation shall not operate as a Political Party or organisation unless it

conforms to the principles laid down in this Constitution, and it is registered.

Article 72(4) provides: “Any person is free to stand for an election as a

Candidate, independent of a political organization or political party.

5 Article 83(3) ‘The provisions of clauses (1)(g) and (h) and (2) of this article

shall only apply during any period when the multiparty system of

government is in operation.’

Resolution of issues:

From the evidence on record by the Petitioner in Constitutional Petition No.

10 21/2013, and the responses of the 2nd,3rd,4th and 5th respondentsit was clear that the

above MPs joined the Petitioner (Party)after it complied with all the Constitutional

requirements as provided in Article 71above stated. They were flag bearers of the

Petitionerin the 2011 elections based on the Democratic principles and practice as

required by the Constitution. Those material facts were not disputed or challenged

15 by the four respondent MPs. They freely exercised their freedom to join the

Petitioner in accordance with Article 29 (1)(e)and in line with the democratic

principles and political objectives of the Constitution.

The submission by counsel for the four respondents that the respondents’ conduct

that culminated in their expulsion from the party/Petitioner was not a matter for
 Constitutional interpretation but a matter between the Petitioner and the four

respondents internally, was too far fetched as it was not supported by evidence or

principles of Constitutional interpretation. But even if I was to agree, which I do

not, it was a matter between the petitioner and the four respondents, so the Rt. Hon.

5 Speaker had no right to interfere with the party’s internal organization, to rule that

the 2nd,3rd,4th and 5threspondents remain in Parliament, when the party had expelled

them.

Democratic Principle (ii)is clear and for avoidance of doubt I will

reproduce it:-

10 “All people of Uganda shall have access to leadership positions at all levels subject

to the Constitution. “This objective is made justiciable by Article 29(1)(e) and

72of the Constitution. The 2nd,3rd,4th and 5th respondents, under Article 29(1)(e)

exercised their freedom to join the party in accordance with the internal

organization of the party as provided by law. By the internal organization of the

15 Petitioner’s party they accessed their respective leadership positions in the

respective Constituencies as Members of Parliament.

It will be too casual to say that the contravention of the Petitioner’s constitution

was not of importance to the National Constitution. The internal Organisation of

the Party is the agreement between the members of a party and the Party itself and
 it connects both the members and the Party to the National Constitution.It is the

umbilical cord of all parties concerned.Ugandansconsented to be governed in

accordance with the Constitution. The petitioner’s partyconstitution was availed to

Court by the5th respondent.Itprovides in article 39(2)thereof “For every elective

5 National and Local Government Office, there shall be primaries held within NRM

to determine NRM candidates as follows:

“Parliamentary - the NRM Parliamentary candidate for a constituency shall be

elected by a college consisting of members of the sub county, Town council,

Municipal Divisions and Parish conferences within the Constituency.”

10 This is how the 2nd,3rd,4th and 5th respondentsaccessed their candidature in elections

and consequently elected to those leadership positions. The word ” Access”

according to Websters Universal Dictionary means: broach (open, pierce, enter,

approach, avenue, entrance, entry, passage way admission) to mention but a few.

While Collins Dictionary 3rd Edition 2009, explains that “If you have access to a

15 building or other place, you are able or allowed to go into it. If you have access to

a person you have opportunity or right to see or meet them…”

The Constitutional provisions statedabove put in place the threePolitical Systems

i.eArticle 69, and provides for Political Parties and Organizations Act and how

they are regulated i.e Article 72(2).Article 73of the Constitution regulates by way
 of limiting the activities of each political system when one of the political systems

has been chosen and adopted by Ugandans. It provides among others “… during

the period when any of the political systems provided for in this Constitution has

been adopted, organisations subscribing to other political systems may exist

5 subject to such regulations as Parliament shall by law prescribe.”

The 2nd,3rd,4th and 5th respondents after contravening theirparty/ petitioner’s

constitution, disciplinary proceedings were commenced against them. There is

evidence as contained in Annexture “A” & A1 attached on the Petition, to the

effect that they were invited to attend the proceedings but they declined to attend.

10 They denied themselves the right to be heard as per Article 28(1) and 44(c) of the

Constitution cannot be invoked in their favour. There were 5 MPs who were

invited and only one attended. The 2nd,3rd,4th& 5th respondents who did not honour

the invitation were found to be in breach of the constitution of the party which

resulted in their dismissal and or expulsion as provided by the petitioner’s

15 constitution.

The 2nd, 3rd, 4th and 5th respondents in clear terms in their responses to the Petition

21/2013 denied that they do not represent the Petitioner in Parliament but represent

their constituencies whichconstituencies lawfully elected them for representation

in Parliament. They also stated that they did not voluntarily leave but forced out of

20 the party. The validity or lawfulness of their election is not in issue at all. What is
 in issue for this Court to interpretis whether the 2nd,3rd,4th& 5th respondentsleft the

party for which they stood as candidates for election to Parliament within the

meaning of Article 83(1)(g) and whether they vacated their seats.

To answer that issue, it was pleaded by the 2nd,3rd,4th& 5th respondents in their

5 responses, that the reason why expulsion was not provided in the Constitution was

deliberate and was intended to protect the rights of Ugandans and not political

parties as per Article 38 and 78(1) of the Constitution. They further stated in their

responses that they filed a case against the party which is pending determination.

According to the documents they attached, the case filed was Application No.

10 251/2013 in the High Court brought under Article 42 of the Constitution, S.34 of

the Judicature Act .and the Judicature (Judicial Review Rules) S.1.No. 11/2009.

S.34 providesfor habeas corpus!! It was seeking nevertheless for prerogative orders

of Court and in particular sought for quashing the decisions of the respondent

(Petitioner)from initiating and prosecuting the applicants by the disciplinary

15 committees. It was also seeking for an order of prohibition prohibiting the

Secretary General of the Respondent from taking part in the disciplinary

proceedings against the applicants. The application was not challenging their

expulsion at all.
 Besides,they never challenged the allegations that they contravened the

party/petitioner’s constitution/internal organisation rules in their responses to the

petition. They kept silent about it. It is trite law that; an omission or neglect to

challenge the evidence in chief of a material or essential part of cross examination

5 would lead to an inference that the witness’ evidence was accepted to its being

assailed to inherently or probably credible” (See James Sawabiri and another

V. Uganda SCCR Appeal NO. 5 of 1990).

Counsel for the 2nd,3rd,4th& 5th respondents submitted that the four respondents

were not agents of the party (Petitioner). This did not have any merit what soever.

10 By the2nd,3rd,4th& 5th respondents’ denying that they were not representing the

Party on whose ticket they stood as candidates to be elected to those leadership

positions, theywere admitting that, they had actually left party(petitioner). This

apparently explains in my view why they never honoured the invitations to the

national disciplinary party proceedings and denied themselves the opportunity to

15 be heard. Their conduct before and afterexpulsion manifestly showed that they left

the party /Petitioner which gave them access to the Public office they held.Their

physical leaving of their seats where they were sitting in Parliament as members of

the party (Petitioner) whose ticket they stood for election, was an act that

confirmed their voluntary leaving which act culminated inthe creation of a peculiar

20 membership in Parliament which was inconsistent with and in contravention of

 the Constitution. Their pleadings in their responses that ‘expulsion” as a ground

was left out in the Constitution to protect individuals not parties under Article

38(1) and 78(1) of the Constitution was a misconception on their part.Article 38(1)

of the Constitution provides for Civic Rights and activities. It provides:

5 “ Every Ugandan Citizen has the right to participate in the affairs of government,

individually or through his or her representatives in accordance with the Law”It is

a cardinal principle of Constitutional interpretation that “ the entire Constitution

has to be read as an intergral whole. No one provision of the Constitution should

be segregated from the others and be considered alone, but all provisions bearing

10 on a particular subject are to be brought into view and be interpreted to effectuate

the greater purpose of the instrument.” This is the rule of harmony, the rule of

completeness and exhaustiveness and rule of paramountancy of the Constitution .

See Cases Paul K. Semwogerere and 2 others V. Attorney General

Constitutional Appeal NO. 1/2002, Okello Okello V. Attorney General,

15 Constitutional Petition No. 4/2005, Thomas Kweyalo alias Latoni,

Constitutional Petition , Appeal No. 36/2011.

Article 78(1) of the Constitution provides for the composition of Parliament and

states: Parliament shall consistof:

(a) Members directly elected to represent Constituencies.

20 (b) …
 (c) …
(d) …
It is general in nature,as it provides for all political systems as provided

inArticle 69 of the Constitution.

5 Article 38(1) and 78(1) of the Constitution are fundamentally connected to

other provisions like part II(ii) and (v) of the National objectives and

Directive Principles of State Policy, Article 1 and 2 of the Constitution,

Articles 29 (1)(e ) & Article 43(1)(c), Article 71 (1)(c), Article 72 ,

Article 73, Article 74. There is no way therefore Articles 38(1) and 78(1)

10 can be segregated from Article 83(1)(g) of the Constitution and the others

above quoted.

It is important to note that it’s a cardinal principle of constitutional

interpretation that the “Constitution is the Supreme law of the land and

forms the standard on which all other laws are justified. Any law that is

15 inconsistent with or in contravention of the Constitution is null and void to

the extent of its inconsistency (seeArticle 2 of the Constitution)

It was submitted by counsel for the 2nd,3rd,4th& 5th respondents that the word

“leave” had the word voluntary embedded in it. That those respondents were

forced to leave or were just dismissed by the petitioner in Constitutional Petition

20 No.21/2013.
 From the evidence on record, as summarised herein and the above foregoing, it is

clear that the 4 MPs left the Party/Petitioner at their own volition in other words

they left voluntarily as evidenced by their pleadings and they are bound by

theirpleadings and no amount of words can change them (pleadings).

5 ‘Voluntary’ according to the Blacks law Dictionary 9th Edition means,

free,deliberate,designed,intended discretionary,optional,willing.

The word ‘leave’ means, according to Webster’s Universal English Thesaurus, to

abandon, decamp, go quit, vacate, withdraw, desert, forsake, relinquish, renounce,

consign, refer cease, desist from, discontinue, refrain stop.

10 The 2nd,3rd,4th& 5th respondents exercised their freedom to associate when they

joined the Petitioner (Party) and they exercised their freedom to leave it when they

contravened the party Constitution and refused or neglected to attend the

disciplinary proceedings as per their internal organisation rules despite the

invitations. They therefore chose not to associate or belong when the disciplinary

15 proceedings according to the Party Constitution were commenced, so they left.

Joining a party is an act of associationand an act of belonging in accordance with

Article 29(1) (e) of the Constitution and it is voluntary. Their expulsion was

merely a formalityto formalize their having left the party to pave way for fresh

elections to be held in the respective Constituencies.

 “Leaving”is the object or focusof Article 83 (1)(g).Expulsionis merelyfor

effectuatingthe purpose or intention of the Article. Expulsion in my view is a

preserve of the party during multiparty dispensation and it’s not exercised by

parties arbitrarily or capriciously and was not exercised on the basis of sentiment.

5 A member of a party is expelled when that member violates the democratic

principles and practice within the party Constitution or internal organization, in

that allowing such member to remain in the party would affect negatively the

promotion of a just, free and democratic society as intended by the

Constitution.Counsel for the Petitioner in C.P 21/2012 and counsel for the

10 2nd,3rd,4th& 5th respondents submitted that the word ‘leave’ was clear and

unambiguous and that therefore the literal and natural meaning should be given to

it. My view is that the facts of theinstant Petition are different from the case of

George Owor V. Attorney General & Another Constitution Petition

No.38/2010 relied on by counsel for the petitioner. In that case the membershad

15 clearly left their respective parties/organization. They had subjected themselves to

elections afresh inother parties and as independents which were different from the

parties which provided them access to their then positions in Parliament. Those

MPs had not been subjected to disciplinary proceedings and they had not been

expelled from their respective parties for having contravened their parties

20 constitution.While the literal and natural principle of constitutional

 interpretationcould be applicable in that Petition of George Owor Supra, it’s the

purposive approach of interpretation which is appropriate to be adopted in the

instant case.

Once the word voluntary is readin the word leave, then it follows naturally that the

5 word involuntary can be read in it as well. This creates the ambiguity and

therefore it becomes imperative to adopt the purposive approach to interpretation.

It has been held consistently by the Supreme Court and this Court that,“In

determining the Constitutionality of legislation, its purpose and effect must be

taken into consideration. Both purpose and effect are relevant in determining

10 constitutionality of either an unconstitutional purpose or constitutional effect

animated by the object the legislation intends to archieve.”( See the cases

already cited(Supra).

Counsel for Petitioner in Constitutional Petition No. 25/2013 cited the case of

Attorney General V. Major General Tinyefuza Constitutional Appeal No.1 of

15 1997 and particularly the Judgment of Oder JSC. It was emphasizedthat,

‘the purposive rule entails the looking and understanding of the history of the

enactment to know the intention of the Legislature which led to the

legislation.’Counsel for the 2nd,3rd,4th& 5th respondents relied heavily on the

Constitutional Commission Report Analysis and Recommendations. The affidavit

 of Hon.Ssekikubo was annexed and the relevant part Annexture ‘D’, the debate of

the 7th Parliament in 2005 on the Constitutional (Amendment) Bill NO.3 of the 28th

July, 2005. All those were reproduced in the majority judgment, I will not

reproduce them. It had been proposed by the Attorney General that expulsion be

5 included as a ground for leaving a political organization or political party for

which one stood as candidate for election to Parliament. After the debates the

amendment was withdrawn. It was stated that it was opposed on the basis that (1)

it would lead to dismissals and counter dismissals from Political parties and (2)

that it would be used for internal strict discipline of Political parties. Others

10 opposed it on the basis that it was redundant. It’s important to note that the history

to the enactment of the Constitution and in particularArticle 83(1)(g)started much

earlier than 1995 and 2005. This is clear from the preamble to the Constitution

Supra. It should also benoted that as part of the history of the enactment the

Uganda Constitutional Commission was established by Statute No. 5 of 1988 and

15 the terms of reference of the commission were provided in S. 4 and 5 of that

Statute. The functions were, among others, to establish a free and democratic

system of Government that will guarantee the fundamental rights and freedoms

of the people of Uganda.

(a) (i) To study and review the Constitution(old Constitution) with the view to

20 making proposals for enactment of the National Constitution that will

 create viable political institutions that will ensure maximum consensus and

orderly succession.

(b)Formulate and structure a draft Constitution that will form the basis

for the Country’s new Constitution.

5 (v) Develop a system of Government that ensures people’s participation in

the governance of the country.

(vi) Endeavour to develop a democratic free and fair election system

that will ensure the peoples representation in the legislature and at

other levels.

10 (vii) Establish and uphold the principles of public accountability by the

holders of public officers and political posts.

The Constituent Assembly Statute 1993 (is part and parcel of the history to

the enactment of the legislation) established and provided the composition of

the Constituent Assembly. It also provided the functions of the Constituent

15 Assembly in S.8 therein as follows;-

(a) To scrutinise, debate and prepare a final draft of the Constitutional

text prepared and submitted to the minister by the Uganda

Constitutional Commission under the provisions of section 6 of the

Uganda Constitutional Commission Statute 1988.

20 (b) To enact and promulgate a new Constitution of the Republic of Uganda.

 The Report And Analysis of Recommendations was just one of the working

documents and was not final, neither did it contain a draft Constitution. The

Constituent Assembly was tasked, under S.8 of the Constituent AssemblyStatute

1993 to scrutinize, debate and prepare a final draft of the Constitutional text

5 prepared and submitted to the Minister among others. It was also tasked to enact

and promulgate a new Constitution.Again as part of the history of the

enactment,the Constituent Assembly during the consideration stage of the

draft Constitution of the Republic of Uganda, chapter 8 –the Legislature,

Article 135 Tenure of office of Members of Parliament, on Thursday 23rd

10 March, 1995 starting from page 3519 of the Constituent Assembly proceedings

particularly page 3533,Article 135 of the draft Constitution was scrutinized,

debated and was passed as it was in the Draft Constitution This became the present

Article 83(1)(g) of the Constitution which is in issue in this Petition. On page

3534 Mr. Lumala Deogratius (Kalungu West) had this to say, and I quote:

15 “Madam Chairman, I am seeking clarification with regard to changing of parties

from one to the other. In practice, someone may decide not to formerly resign

from one party to another for fearing that he will not be elected if he did so. So he

sits on benches of the opposition but will always vote with the other party.”

This clarification is spot on of the purpose and intentionof the enactment of

20 Article 83(1)(g) of the Constitution.

 Deputy Chairman: Hon. Lumala, I think we had finished on that one. You are

taking us back. Does it relate to No.(2) which we are going to. I have been very

alert if you had put up your hand I would have seen you. “Hon. Mulenga.

Mr. Mulenga: Perhaps to put the minds of Hon. Lumala and others at ease, the

5 word used is leaves. He can either leave voluntarily or by expulsion. If that party

notices that he is no longer supporting them, they might expel him from the party

and therefore he leaves the party.”

Thisanswer shows that expulsion was not the object of Article 83(1) (g) as itwould,

stifle the establishment and promotion of a just, free and democratic society as

10 contemplated by the Constitution. The parties are independent, that is why there is

the requirement of compliance with the democratic principle as provided in the

Constitution.That is why expulsion is a preserve of the party. The significance of

Mr. Mulenga’s clarification is that when the party notices that a member is no

longer with it, the party expels them and it was not left out to protect individual

15 members as the four respondents replied in their pleadings. I hasten to add, that,

that is why the word “leave” in Article 83(1)(g) is neutral to cause in my view.

Since they had left the party by their conduct, to be democratic they would have

just vacated their seats so that fresh elections were conducted. Since they did not

do so, it is only the party which had the mandate to reject them by expelling

20 them.The deliberations at the consideration stage of the Constituent Assembly

 shows the mischief the enactment intended to cure. So the amendment which was

withdrawnwas actually redundant.

The 1995 Constitution was framed in that way to provide safeguards which were

lacking in the independence,the Pigion hole Constitution of 1966 and the so called

5 Republic Constitution of 1967.

Counsel for the four MPs submitted that he was buttressed by Mr. Yoweri

K.Museveni evidence in the affidavit to the effect that, he recognized

that the crossing was voluntary. That “Dr. Milton Obote merely

persuaded the MPs in opposition” this submission cannot stand in

10 light of what has been stated in this Judgment and the history of the

enactment.

The act of Dr. Milton Oboteof persuading the members of Parliament from the

opposition, to cross on the floor without them seeking fresh mandate from the

electorate was the actual mischiefthat,Article 83(1)(g) was intended to cure. He

15 was obviously depriving the people of Uganda of their freedom to choose leaders

of their choice. . He took away their sovereignty. His acts of persuasion were out

of step with the establishment and promotion of a just free and democratic society

to say the least. It is therefore no wonder that the alliance he formed of UPC &
 Kabaka Yekka (KY) collapsed and eventually we got into Constitutional instability

as per the Petitioner’s evidence.

Uganda became a one party state, which, the new order as embodied in the 1995

Constitution out laws.

5 The2nd,3rd,4th and 5th respondents want to superficially appear to belong to the

Petitioner when they made themselves defacto independents by passing off as

members of the Petitioner, whereas not.The petitioner had not used

unconstitutional means to throw them out of the party. On the contrary it is the

2nd,3rd,4th and 5th respondents who are suffering from the Movement Political

10 System which has individual merit as a basis for election to political offices as per

Article 70 of the Constitution. This is inconsistent and in contravention of the

Constitution. See Article 73(1) of the Constitution. The Cross petitioner and first

respondent in all petitions pleaded that a referendum on political systems was

conducted in accordance with Article 74 of the Constitution and the people of

15 Uganda chose and adopted the multi-party political system. During the multi-party

political dispensation/period, it is the party which one subscribes to which has the

key of access to the people in constituencies.

It was submitted by counsel for the cross petitioner and 1st respondent in all

petitionsthat electing a candidate of a political party is an act of association which I

 agree with I would add that much as the voters can vote in any way, they want a

party flag bearer has no option but to follow the party’s line in the manifesto and

ideologyduring multiparty dispensation. Counsel further submitted that, Article

29(1)(e), of the Constitution cited supra guarantees the right to associate. This

5 means that if the right to associate is guaranteed along with it, flows the right not to

associate. That because the four MPs had the freedom to join the NRM party, by

their joining the party they associated with the party and its supporters in

accordance with constitutional provisions Article 29(1) (e),38(1), 43(1)(c)&71(1)

(c). That the people under Article 1 exercising theirsovereignty, expressed their

10 will and consent on who shall govern them…through free and fair elections of their

representatives…See (Article 1(4).

It was further submitted that by choosing a party flag bearer or candidate, the party

they support the people think that it will form a government and that candidate

who is the flag bearer will influence the affairs and policies of Government by

15 advancing the party ideology and manifesto. By electing, the people exercise their

sovereignty in accordance with Article 38(1) of the Constitution in a multi-party

political system dispensation.

By electing the 2nd,3rd,4th and 5th respondents as their flag bearers they were

exercising their right to participate in the affairs of government through their

20 representatives in accordance with the Article 38(1) of the Constitution.

 I accept the above submission as it’s in line with the evidence and the law. The

party Constitution was the agreement between the four MPs which provided access

or opening for them to the people in the Constituencies concerned.

The moment they contravenedtheir party internal organisation, they legally closed

5 the access to & from their constituencies and Article 38cannot not be applied in

their favour. They are prejudicing the rights and freedoms of the people in their

Constituencies who elected themand the party after joining the Petitioner and

having access to the Public offices they held through the Party. Apparently they

infringe and or contravene Article 43(1) (c) of the Constitution and their

10 continuous stay in Parliament becomes inconsistent with that provision and the

others cited Supra.

The submission of counsel for the 2nd,3rd,4th and 5th respondents that you cannot be

compelled to be an independent, cannot be sustained. He based his submissions on

Constitutional Appeal No. 2/2006 Brigadier Henry Tumukunde V. Attorney

15 General.He relied onthe Judgment of Hon. Justice Kanyeihamba JSC as he then

was, and quoted as follows:“A Member of Parliament the Supreme legislative

organ of the land should never have to resign under the threat or directions of any

one but in accordance with provisions of the Country’s Constitution and laws

made by Parliament and do so voluntarily.”

 The Brigadier Tumukunde case supra is distinguishable from the facts of this case.

I accept the submissions of counsel for the petitioner in constitutional petitition No.

19/2013, that, in that case the petitioner was a representative of an interest group

(UPDF) which is not a body corporate and not a party or political

5 Organisation.Article 83(1) (f) is not applicable at all to the facts of this case.

The evidence embodied in the responses of the 2nd,3rd,4th and 5th respondents and

the evidence of the Petitioner in C.P 21/2013 show that, they voluntarily made

themselves defacto independents and left the party as earlier discussed in this

judgment.

10 The submissions are neither supported by evidence norby law. To accept such

submissions would be perpetuating impunity and indiscipline. This Court adhering

to the judicial oath and Article 126(1), is under an obligation to deter any kind of

precedent which would plunge this Country into turmoil again.

The Rt. Hon. Speaker in theimpunged ruling applied a precedent in the pre-

15 Common Wealth period. She cited the incident of King Charles 1 of England in

1642 which was a time of absolute monarchy when he wanted to arrest five

members of the House of Commons. My view is that it was very unfortunate as

we are in the 21st Century during which the Commonwealth came into being in

1949. A precedent in anabsolute monarchycannot be a precedent to be followed in

 this erasince there is nothing democratic in an absolute monarchy,to be compared

with the peoples popular Constitution of 1995. The ruling to retain the expelled

MPs who had left the Petitioner was inconsistentwith and was incontraventionof

the provisions of the Constitution (supra).

5 Hon. Mohammed Nsereko stated in his affidavit in reply to CP 21/2013 that, there

was infringement of their rights as individual MPs, but as counsel for the Cross

Petitioner and for the 1st Respondent argued, the electorate in those respective

Constituencies were not enjoying their right to representation in Parliament and

that in interpreting Article 83(1) (g) there is need to balance the competing rights

10 and interests i.e. the MPs, the voters and the party.

Some other comparable case law I found informative and persuasive was the

Malawi Presidential Referral No, 2/2005. On the question of Crossing the

floor by Members of Parliament, an authority provided by counsel for

Petitioner and Cross Petitioner in Constitutional Petitions 19/2013& 16/2013 -

15 http://www.malawillii.org/mw/judgment/high

court-general/Division/2006/22.Cite visited on 09/08/2013. The provision the

Court was interpreting was about voluntary leaving of the party, and this is my

line of argument. The Supreme Court of Appeal of Malawi (in the Judgment of

Twea J) held that,“the freedoms of Association, conscious and expression are

20 largely all embodied in the political rights under S. 40 in respect of MPs. ( S.

 40 of the Malawi Constitution is equivalent to Article 29 (1)(e) of our Uganda

Constitution).is born out of the fact that when one decides to join a political

party one exercises his right to associate. The consequence of joining an

association is that, one becomes subject to the rules and regulations of the

5 association. One will exercise one’s freedom of conscious and expression in

respect of matters pertaining to the objectives of the said associations within

the scope of the rules and regulations of that Association, if one is not happy

with the rules thereof is free to exercise his or her own right not to belong to

that association any more. It cannot be heard to be said that members of the

10 National Assembly who are members of the Political parties are denied their

freedoms of associations’ conscious and expression. The fact of the matter is

that as members of political parties, which is a right exercised under S.40,

they have acquiesced to have the freedoms and rights limited. This

notwithstanding, as submitted the rights and freedoms have not been

15 removed. The rules and regulations of their political parties provide and limit

the legitimate avenues that, the restriction of the right of Members of

Parliament in this respect has been held to be reasonable and recognized by

the international human rights standards and necessary in an open and

democratic society: (Experte chairperson of Constituent Assembly.

 In Re certification of Constitutions of the Republic of South Africa – 1996 (4)

SA, 744(1) (2)…)”

The provision which was being interpreted was S.65 of the Malawi Constitution. It

provides;“ The speaker shall declare vacant the seat of a member of the

5 national Assembly who was, at that time of his own, or her election, a member

of one political party, represented in the National Assembly, other than by

that member alone, but who has voluntarily ceased to be a member of that

party or has joined another political party represented in the national

Assembly, or has joined any other political party, or association or organization

10 whose objectives or activities are political in nature.”

Bythe four MPs’ pleadings and conduct they voluntarily ceased to be members of

the Petition (NRM party) and they made themselves defacto independentswhich

compelled the party to exercise its prerogative to expel them.

The purpose of Article 83(1) (g) was to prohibit floor crossing in whatever form as

15 long as the democratic principles and practice as per the Constitution were violated

as shown in this Judgment. They had indirectly and voluntarily left the party and

therefore they voluntarily ceased to be Members of Parliament and vacated their

seats upon expulsion.

 To promote multiparty democracy and to discourage disappearance of party

politics the framers of the Constitution put all those various provisions

above,including Article 83(3) of the Constitution which provides “The provisions

of clauses (1)(g) and (h) and (2) of the article shall only apply during any period

5 when the multiparty system of government is in operation.”This further explains

the intention of the enactment.

Finally I conclude that the 2nd, 3rd,4th and5th respondents voluntarily (freely,

deliberately, intentionally, optionally, willingly) left the Petitioner in Constitutional

Petition 21/2013,and consequently contravened the Constitution. The issues

10 therefore,1,4,5 and 6, are answered in the affirmative that the 2nd,3rd,4th and 5th

respondents had actually left the party/Petitioner and they therefore vacated their

seats upon expulsion.

I agree with the conclusion, declarations and orders reached by my learned brother

Justices for the above reasons in resolution of issue 1,4,5,6 and agree with all the

15 resolutions on the rest of the issues.

Dated this ………………………..day of …………………………2014.

HON.LADY JUSTICE FAITH E.K.MWONDHA, JA/CC

 THE REPUBLIC OF UGANDA

IN THE CONSTITUTIONAL COURT OF UGANDA AT KAMPALA

CONSTITUTIONAL PETITION NO.16 OF 2013

HON. LT (RTD) SALEH M.W. KAMBA

5 MS AGASHA MARYM :::::::::::::::::::::::::PETITIONERS

VERSUS

THE ATTORNEY GENERAL OF UGANDA

HON. THEODORE SSEKIKUBO

HON. WILFRED NIWAGABA :::::::::::::::::RESPONDENTS

10 HON. MOHAMMED NSEREKO

HON. BARNABAS TINKASIMIRE

CONSTITUTIONAL PETITION NO.19 OF 2013

JOSEPH KWESIGA ::::::::::::::::::::::::::::::::::::::::::::::::::::::PETITIONER

VERSUS

15 THE ATTORNEY GENERAL OF UGANDA:::::::::::::::RESPONDENT

CONSTITUTIONAL PETITION NO.21 OF 2013

NATIONAL RESISTANCE MOVEMENT ::::::::::::::::::PETITIONER

VERSUS

THE ATTORNEY GENERAL OF UGANDA

20 HON. THEODORE SSEKIKUBO

 HON. WILFRED NIWAGABA :::::::::::::::::::::RESPONDENTS

HON. MOHAMMED NSEREKO

HON. BARNABAS TINKASIMIRE

CONSTITUTIONAL PETITION NO.25 OF 2013

5 HON. ABDU KATUNTU :::::::::::::::::::::::::::::::::::::::: PETITIONER

VERSUS

THE ATTORNEY GENERAL OF UGANDA ::::::::::::::::::RESPONDENT

CORAM: HON. MR. JUSTICE S.B.K. KAVUMA, AG.DCJ.

HON. MR. JUSTICE A.S. NSHIMYE, JA/CC

10 HON. MR. JUSTICE REMMY KASULE, JA/CC

HON. LADY JUSTICE FAITH MWONDHA, JA/CC

HON. MR. JUSTICE R. BUTEERA, JA/CC

DISSENTING JUDGEMENT OF HONOURABLE JUSTICE REMMY

KASULE, JUSTICE OF THE CONSTITUTIONAL COURT

15 I am grateful and in agreement with their Lordships of the majority judgement

as to the facts constituting the background to the consolidated Constitutional
Petitions numbers 16, 19, 21 and 25 of 2013, as well as the principles of
constitutional interpretation set out in the said judgement.

However, with the greatest respect to their Lordships of the majority judgement,
20 I beg to differ from some of the conclusions they have reached on some of the
framed issues.
 I will, as much as possible deal with the issues following the order they were
submitted upon by respective counsel, even though this pattern may be departed
from now and then, where the inter-relationship of the issues so demand.

Issue 1, 4, 5 and 6:

5 The overriding question for resolution through these four issues is whether or
not under the 1995 Constitution an expulsion of a Member of Parliament by a
political party from membership of that political party upon whose ticket the said
member was elected to Parliament, automatically leads to that Member of
Parliament to lose his/her seat in Parliament under Article 83 (1) (g) and (h) of the
10 Constitution. The Article provides:

“83. Tenure of office of Members of Parliament.

(1) A member of Parliament shall vacate his or her seat in Parliament –

(a) ……………………………….
(b) ……………………………….
15 (c) ……………………………….
(d) ……………………………….
(e) ………………………………
(f)………………………………

(g) If that person leaves the political party for which he or she stood
20 as a candidate for election to Parliament to join another party or
to remain in Parliament as an independent member;

(h) If, having been elected to Parliament as an independent

candidate, that person joins a political party;”

(i) ………………………………………………………
 Historical Perspective:

The history, particularly the legislative history of a country is a relevant and

useful guide in constitutional interpretation:

See: Okello Okello John Livingstone & Six Others Vs The Attorney General
5 and Another: Constitutional Court Constitutional Petition No.4 of 2005.

The 1995 Constitution, as is reflected in its preamble, Ugandans through a

Constituent Assembly, adopted, enacted and gave to themselves and to their
posterity a constitution on the basis:

“Recalling our history which has been characterized by political and

10 constitutional instability,

RECOGNISING our struggles against the forces of tyranny, oppression

and exploitation;

COMMITTED to building a better future by establishing a socio

economic and political order through a popular and durable national
15 Constitution based on the principles of unity, peace, equality,
democracy, freedom, social justice and progress; ……………….”

Hence the 1995 Constitution is a result of the struggles of Ugandans against

political and constitutional instability brought about by the forces of tyranny,
oppression and exploitation. It is therefore through proper application and
20 compliance with the 1995 Constitution that a society of Ugandans based on the
principles of unity, peace, equality, democracy, freedom, social justice and
progress has to be created.
 The suppression of fundamental human rights and freedoms of conscience,
expression, movement, assembly and association, particularly through a
dictatorship of the political party that managed to keep itself in political power at
the suffocation of other political groups and other organs of the state had to be
5 done away with. Hence the enactment of Article 75 of the Constitution, that
Parliament shall have no power to enact a law establishing a one-party state.

In 2005, Ugandans, through a Referendum, freely chose to govern themselves

under a multi-party democracy dispensation with political parties presenting
candidates for Presidential, Parliamentary and Local Government elections with
10 the winning candidate in Presidential elections becoming President of the country
and the winning party in Parliamentary elections controlling Parliament through its
majority of Members in Parliament. The political party (parties) with minority
seats form the opposition in Parliament. But all Members of Parliament
representing constituencies as well as those representing special groups constitute
15 the Parliament of Uganda whose constitutional mandate is to make laws to
promote unity, peace, equality, democracy, freedom, social justice and progress.
The same also happens, as much as possible, in respect of local governments.

Therefore from the historical perspective, the Constitution is to be interpreted in

such a way that promotes the growth of democratic values and practices, while at
20 the same time doing away or restricting those aspects of governance that are likely
to return Uganda to a one party state and/or make in-roads in the enjoyment of the
basic human rights and freedoms of conscience, expression, assembly and
association.

The reason for the inclusion of Article 83 (1) (g) and (h) in the Constitution is
25 thus, in my humble view, to address some of the wrongs identified in Uganda’s
 history of political and constitutional instability. The Uganda Constitutional
Commission headed by His Lordship Justice Odoki, JSC, as he then was, gathered
views from Ugandans as to how they wanted to be governed and made a report that
was debated by the Constituent Assembly and provided the basis for the 1995
5 Constitution.

The Commission found that since the attainment of independence, it had

become a practice by Members of the political parties in opposition crossing the
floor in Parliament and joining the party in Government, thus contributing to the
creation of a one party state and rendering the working of multi-party democracy
10 impossible. The Odoki Commission thus proposed as a remedy that in the case of
a multi-party Parliament a member wishing to cross the floor must first resign his
or her seat and seek fresh mandate from the constituency that had elected him/her
to represent the people of that constituency in Parliament. Likewise, one elected as
an Independent, should also seek fresh mandate on joining a political party.

15 It is of some significance, in my observation, that the recommendation of the

Odoki Commission is restricted to a Member of Parliament belonging to a political
party or who was elected as an independent crossing the floor in Parliament to join
another party or leaving the party to become an Independent in Parliament. The
recommendation does not cover a situation of that Member of Parliament being in
20 dispute with his or her political party outside Parliament on matters having nothing
to do with that member’s duties and responsibilities in Parliament, that for one
reason or another, may lead to the expulsion of that Member from the party. This
omission, in my considered view, must also be acknowledged as missing from
Article 83 (1) (h) and (g).

25 Principles of Constitutional Interpretation.

 The overriding principle is that in any question relating to the interpretation or
application of any provision of the Constitution, the primary aids to the
interpretation must be found in the Constitution itself: See: Supreme Court of
Malawi Court Reference by the Western Highlands provincial Executive
5 [1995] PG SC 6; SC 486 (20th September, 1995).

It is a principle of constitutional interpretation that where words or phrases of

the Constitution are clear and unambiguous, they are to be given their primary,
plain, ordinary and natural meaning. The language must be construed in its natural
and ordinary sense. Should the language of the Constitution be imprecise or
10 ambiguous, then a liberal, generous and/or purposive interpretation should be
given to it: See: Attorney General Vs Major General David Tinyefunza:
Constitutional Appeal No.1 of 1997 (SC).

The language of the Constitution may be broad and in general terms laying
down broad principles. This calls for a generous interpretation avoiding strict,
15 legalistic and pedantic interpretation, but rather broadly and purposively; aiming at
fulfilling the intention of the framers of the Constitution. One provision of the
Constitution ought not be isolated from all the others. The Constitutional
provisions bearing upon a particular subject should be looked at and be so
interpreted as to effectuate the great purpose of the constitution: See: Supreme
20 Court of Uganda Constitutional Appeal No.1 of 1998: Attorney General Vs
Salvatori Abuki.

The Constitutional (Amendment) No.3 Bill, 2005:

The debates of Members of Parliament of this Bill have some significance in

resolving the framed issues under consideration because the Bill constituted a
 proposed amendment by Parliament of Article 83 (1) (g) in 2005. The proposed
amendment was:-

“83 (1)

(g) If that person leaves the political party for which he or she stood as a
5 candidate for election to Parliament to join another party or to remain
in Parliament as an independent Member; or if he or she is expelled
from the political organization or political party for which he or she stood
as a candidate for election to Parliament.” (emphasis is mine).

Members of Parliament from all the groups represented in Parliament extensively

10 contributed giving various reasons either supporting or not supporting the
amendment. Hon. Wandera, MP, reasoned that an MP who supports a position in
the national interest, but contrary to the position of his/her party, ought not be a
victim of the provision. To him issues of internal discipline in the political parties
ought not be introduced in the Constitution. He reasoned that Members of
15 Parliament were elected by the populace in the constituency including those who
do not belong to the party of the MP. These should not be deprived of their MP
because of that MP being expelled by his/her party. Hon. Amama Mbabazi’s stand
was that in a multi-party system, once the party expels one, then such a one has no
basis to speak in Parliament. Hon. Ben Wacha saw the amendment as redundant.
20 He read it as already contained in Article 83 (1) (g). Hon. Dr. Okulo pointed out
that political parties can be very arbitrary in their decisions and an MP should not
lose his/her seat for standing against such decisions. Hon. Ruhindi: Proposed that
the circumstances under which an MP is to be expelled be clearly set out in the
provision so that there is protection to MPs and that way the functioning of
25 systems and institutions be strengthened.
 Parliament then resolved on 07.07.05 to stand over the amendment and consult
further. On 08.08.05 when Parliament re-assembled, Hon. Dr. Makubuya, the then
Attorney General, proposed to delete the amendment “in the interest of peace”
because Members had expressed serious concern over what it meant. The House
5 unanimously approved the deleting: See: The Hansard: 5th session: 1st meeting:
07.07.05 pp 14745 – 15066.

From the above account as to what transpired in Parliament, I am unable to

conclude that Article 83 (1) (g) and (h) of the Constitution was retained as it was
on the understanding that it was not necessary to amend it. Its effect was already
10 catered for. The view I take is that Parliament on considering all the reasons put
forward by the Honourable Members rejected the proposed amendment by having
the same deleted. I am enforced to reach this view by the words of the then
Attorney General Dr. Makubuya that he proposed to delete the amendment “in the
interest of peace” because members had expressed serious concern as to what the
15 amendment meant.

Position in Other jurisdictions:

There are other jurisdictions to look at having constitutional provisions on the lines
of Article 83 (1) (g) and (h).

Zambia:

20 Article 71 (2) (c) of the Constitution of Zambia provides that a Member of the
National Assembly shall vacate his/her seat:

“(C) in the case of an elected member, if he becomes a member of a

political party other than the party of which he was an authorised
candidate when he was elected to the National Assembly or, if having
 been an independent candidate, he joins a political party, or having
been a member of a political party, he becomes an independent;”

Malawi:

Section 65 (1) of the Malawi Constitution provides that:

5 “The Speaker shall declare vacant the seat of any Member of the National
Assembly who was, at the time of his or her election, a Member of one
political party represented in the National Assembly, other than by that
member alone but who has voluntarily ceased to be a member of that party or
has joined another political party represented in the National Assembly, or
10 has joined any other political party or association or organization whose
objectives or activities are political in nature.

(2) Notwithstanding subsection (1), all members of all parties shall have the
absolute right to exercise a free vote in any and all proceedings of the National
Assembly, and a Member shall not have his or her seat declared vacant solely
15 on account of his or her voting in contradiction to the recommendations of a
political party, represented in the National Assembly, of which he or she is a
member.”

India:

The Tenth schedule to the Constitution of India, under its Article 102 (2) and
20 191 (2) provides:

“2. Disqualification on ground of defection:-

 (1) Subject to the provisions of [paragraph 4 and 5] a member of a House
belonging to any political party shall be disqualified for being a member
of the House…………

(a) If he has voluntarily given up his membership of such a political

5 party or

(b)If he or she votes or abstains from voting in such House contrary to

any direction issued by the political party to which he
belongs…………………..without obtaining ………………the prior
permission of such a political party.”

10 New Zealand:

New Zealand, a commonwealth country, has a proportional representation system

in Parliament. The proportion of the popular vote received by political parties
determines representation in Parliament according to the Electoral Act. The
proportionality of party representation is also reflected in the distribution of seats
15 on select committees, allocation of question time and the order of call in the
House.

Under Section 55A of Electoral Act of new Zealand a seat of a Member of

Parliament becomes vacant if that member ceases to be a Parliamentary Member of
the political party for which that member was elected if that member notifies in
20 writing that he/she has resigned from the Parliamentary Membership of the
political party for which the member was elected, or if the member wishes to be
recognized for Parliamentary purposes as either an independent Member of
Parliament or a member of another political party.
 The political party also may through its Parliamentary leader in a written
statement signed by the said leader stating that the Parliamentary leader reasonably
believes that a Member of Parliament concerned has acted in a way that has
distorted, or is likely to continue distorting the proportionality of political party
5 representation in Parliament as determined at the last general election, after
notifying and requiring the member concerned to respond, and after obtaining
support of at least two thirds of the Party Parliamentary Members, notify the
Speaker of the House to declare the seat of that Member vacant.

Interpretation of Article 83 (1) (g) and (h):

10 Having considered the historical perspective, the appropriate principles of

interpretation of the Constitution, the relevant Uganda Parliamentary debates on
the very proposed amendment when it was tabled before Uganda Parliament in
2005 as well as the situations in some other jurisdictions other than Uganda, I now
proceed to interpret Article 83 (1) (g) and (h).

15 The Article has already been considered by this court in Constitutional

Petition No.038 of 2010: George Owor Vs Attorney General and Another
when the court held that its language was very simple and clear. It was not
ambiguous and should be construed basing on the natural meaning of the English
words. To the court, the provision meant that:-

20 “ (i) A Member of Parliament must vacate his/her seat if he/she was elected
on a political party/organization ticket and then before the end of that
Parliament the member joins another party.

(i) He/she must vacate his/her seat if she was elected on a party ticket
and elects to be nominated as an independent before the term of
25 the Parliament comes to the end.
 (ii) If he/she was elected to Parliament on a party ticket, he/she
cannot remain in Parliament as an independent member.

(iii) Common sense dictates that if one was elected to Parliament on a

political party ticket and joins another party, he/she cannot be
5 validly nominated for election on the ticket of that latter party
unless he/she at the time of nomination resigned or vacated the
seat in Parliament.

(iv) If one was elected to Parliament on party ticket and he/she leaves
that party to become independent, he/she cannot validly be
10 nominated as an independent unless he/she has ceased to be or has
vacated the seat in Parliament.”

The court gave as the rationale for its decision, as being that one cannot, in a
multiparty political system, continue to represent the electorate on a party basis in
Parliament while at the same time offering oneself for election for the next
15 Parliament on the ticket of a different political party or as an independent. It
would be a betrayal of the people who elected such a one and an exhibition of the
highest form of political hypocrisy and opportunism which the Article was
designed to prevent. It would also be an exhibition of political indiscipline and an
abuse of people’s sovereignty which is so strongly enshrined in the Constitution.

20 The court, in similar terms and on the same grounds as above, interpreted
Article 83 (1) (h) as meaning that an Independent Member of Parliament who
joins a political party before the end of the Parliamentary term he/she was elected
to, must also resign the seat of Parliament otherwise he/she cannot be validly
nominated on a political party ticket for election to the next Parliament.
 However, the decision of the George Owor case (supra) is not, in my view, a
basis for the proposition of the petitioners in Constitutional Petitions numbers
16, 19 and 21 of 2013 that once a Member of Parliament elected to Parliament on
a ticket of a political party is expelled from membership of that party by the party
5 itself, then such a member must also automatically vacate his/her seat in
Parliament.

My appreciation of the meaning of the language of Article 83 (1) (g) and (h) is
that the Member of Parliament concerned must himself/herself, out of his/her own
volition take the decision to leave and abandon the political party for which he or
10 she stood as a candidate for election to Parliament and the same member must also,
again out of his/her own volition decide to join another party or to become an
Independent. Once such a member takes that decision, then, such a member’s seat
in Parliament becomes vacant and a bye-election has to be held.

While the member of Parliament concerned may take such a decision directly
15 and openly by announcing in writing, or otherwise, of leaving the political party on
which he/she was elected to Parliament and joining another political party or
becoming an Independent or vice versa, it is also possible that such a decision can
be inferred from the conduct of the concerned Member of Parliament.

In the Supreme Court of New Zealand case of Richard William Prebble and
20 Three others Vs Donna Awatare Huata, SC C IV 9/2004, such a conduct was
inferred from the fact, amongst others, that the concerned Member of Parliament
willingly stopped paying subscription for her membership to her political party
upon which she had been elected to Parliament so that her membership to that
party lapsed. Since New Zealand has a proportional representation system of
25 electing Members of Parliament whereby a political party is allotted Members of
 Parliament according to the number of votes a party has got at a general election,
the lapse in membership willingly caused by this Member to her political party let
that party to lose its strength under the proportional representation arrangement
system. Thus the political party took the procedural steps provided for in the
5 Electoral Act of New Zealand to have the Speaker declare the seat of this
member vacant and the same was done.

All this was done on the basis that it was this Member of Parliament who
voluntarily took the step to cease Membership of her party by withholding
payment of her membership subscription to the same. The Supreme Court of New
10 Zealand thus held that the political party was justified to take the steps it took, as
allowed by the law, to have this member vacate her seat in Parliament.

The facts of this case are therefore very different from the facts of the
consolidated Constitutional Petitions 16, 19, 21 and 25 of 2013 where expulsion
of the Members of Parliament is already done by the political party and the
15 Speaker of Parliament is presented with a demand by the expelling political party
to declare the seats of the concerned Members of Parliament to be vacant.

Also the Malawi Supreme Court of Appeal In the matter of the question of
the crossing the Floor by Members of the National Assembly: Presidential
Reference Appeal No.44 of 2006 [2007] MWSC1 interpreted section 65 (1) of
20 the Constitution of Malawi and held that the section did not violate the
fundamental and other human rights and freedoms of conscience, expression,
assembly and association as are enshrined in the Constitution of Malawi. It is of
significance that the said section 65 (1) specifically provides that the Member of
Parliament concerned must have “voluntarily ceased to be a Member of that
25 party and has joined another political party represented in the National
 Assembly……………..”. Further, Section 65 (2) removes any restrictions upon a
Member of Parliament in that he/she retains an absolute right to freely vote in the
National Assembly, even contrary to the recommendations of his/her political party
upon which he/she was elected to Parliament.

5 The Malawi legislation therefore, while ensuring that political parties exercise
discipline upon their Members of Parliament by preventing defections, Members of
the Parliament of Malawi are allowed to vote freely in Parliament even against
positions taken by their respective political parties on specific issues. Further still,
in the case of Malawi the decision by a Member of Parliament to leave the party to
10 join another or to become an independent must be a voluntary one.

The Supreme Court of Zambia has also had occasion to consider the meaning of
Article 71 (2) (c) of the Zambian Constitution. This is in the case of The
Attorney General, The Movement for Multiparty Democracy (MMD) V
Akashambatwa Mbikusita Lewanika Fabian and 4 Others: [1994] S.J. (S.C.).
15 The issue for resolution by that Court was whether the Article as worded made a
Member of Parliament elected on a ticket of the MMD political party to vacate
his/her seat on that member’s announcing that he/she had left the MDD party but
without stating whether he/she had joined any other political party.

The Zambian Supreme Court, in resolving the issue, adopted the “purposive
20 approach” other than the rule of literal interpretation of the Constitution, so as to
promote the general legislative purpose underlying the provision. The court
stated:-

“…………..whether the strict interpretation of a statute gives rise to

unreasonable and unjust situation, it is our view that judges can and
25 should use their good common sense to remedy it – that is by reading
 words in if necessary – so as to do what Parliament would have done
had they had the situation in mind.”

The court then proceeded to remedy the situation in the case by reading the
necessary words so as to make the constitutional provision, which the court had
5 found to be discriminatory, so as to make it to be fair and undiscriminatory.
Consequently the court read the words “vice versa” in Article 71 (2) (c) so that
the same read:

“71 (2) A member of the National Assembly shall vacate his seat in the
Assembly:

10 (c) In the case of an elected member, if he/she becomes a member of a

political party other than the party, of which he/she was an
authorized candidate when he/she was elected to the National
Assembly or, if having been an independent candidate, he/she joins a
political party or vice versa.”

15 The Zambian Article 71 (2) (c) is in many respects similar to Uganda’s Article
83 (1) (g) and (h). No Constitutional Court in Zambia has, as of now, interpreted
the article to mean that a Member of Parliament automatically loses his/her seat in
Parliament on being expelled from membership of that party for whatever cause, if
that party is the one on whose ticket the concerned Member was elected to
20 Parliament.

In India, where a Member of Parliament, can even lose his/her seat by reason of
voting in Parliament on an issue contrary to a stand taken by his/her political party
on that issue, the law specifically provides that the Member concerned shall
voluntarily take the decision and the Constitution restricts itself to the conduct of a
25 Member of Parliament within the House where crossing the floor primarily applies.
 Having considered the history of Uganda’s political development, including its
legislative history giving rise to the 1995 Constitution, and later on in 2005, the
rejection by Uganda Parliament of the Constitutional (Amendment) Bill No.3 of
2005 on the very point, and the decisions of courts of different jurisdictions, with
5 constitutional provisions having a bearing on Article 83 (1) (g) and (h), and some
of whom too, like Zambia and Malawi, have had some aspects of history similar to
that of Uganda, like the lack of democratic governance and the one party state, it is
necessary to adopt the purposive approach in analyzing the meaning of Article 83
(1) (g) and (h). This approach was also, in some ways, adopted by this court in the
10 George Owor case (supra).

It is necessary to address the question as to what is the mischief that the Article
is there to cure.

In my considered view while the Article is there to prevent crossing on the floor of
Parliament by Members who enter Parliament, and fail to stick and to pursue the
15 policies of the party upon whose ticket the said members were elected into
Parliament on the one hand, it must also be appreciated on the other hand, that a
Member of Parliament represents everyone in the Constituency that elected
him/her into Parliament, regardless of party affiliation on the part of the voters in
that constituency and as such the Member of Parliament must be let to carry out
20 his/her primary function as a constitutive part of Parliament under Article 79 (1) of
the Constitution:

“79. Functions of Parliament.

(1) Subject to the provisions of this Constitution, Parliament shall have

power to make laws on any matter for the peace, order, development
25 and good governance of Uganda.
 (2) Except as provided in this Constitution, no person or body other than
Parliament shall have power to make provisions having the force of law
in Uganda except under authority conferred by an Act of Parliament.

(3) Parliament shall protect this Constitution and promote the democratic
5 governance of Uganda.”

It follows therefore that where, according to the judgement of the Member of

Parliament, in situations where the position of a political party of a Member of
Parliament is at variance with fulfillment of any of the constitutional functions
stated above, a Member of Parliament, has by the command of the Constitution, to
10 be let to take a stand in Parliament even if that stand is contrary to the position of
his/her political party.

The political party concerned ought not, under the pretext of Article 83 (1) (g)
and (h) claim to have powers to expel such a member from the party and by reason
of the expulsion, to have that Member automatically vacate his/her seat in
15 Parliament. Were that to be the case, then the mischief of elements of a one party
state type of governance of suppressing basic freedoms of a Member of Parliament
and over dominating organs of state, such as Parliament, that are supposed to
operate independently, subject to the constitutional checks and balances, would re-
surface again. This indeed would be the more reason if Article 83 (1) (g) and (h)
20 is given the interpretation that would allow political parties to expel Members of
Parliament from their membership to that party on grounds that do not have even
any bearing on the role, duties and responsibilities of a Member of Parliament as a
representative of his/her constituency in Parliament.

The composition of Parliament, notwithstanding its constitutional mandate of

25 five years, would be entirely left to be changed from time to time by the political
 parties depending on how many members the parties expel from membership
during that period of five (5) years. This would greatly weaken Parliament and
subject the country to have by-elections whenever a political party expels a
Member of Parliament.

5 There is also a likelihood that free debate in Parliament would be negatively

affected as Members, under the threat of expulsion, would restrain themselves
from playing their role as representatives of all the people in the respective
constituencies by merely supporting what their political parties dictate to them. A
Member of Parliament would be rendered to be a mere mouth piece of the party
10 he/she represents in Parliament.

I am thus unable to infer that the framers of the 1995 Constitution intended in
framing the Article in question that a Member of Parliament elected in Parliament
on a party ticket of a particular party should vacate his/her seat in Parliament
because that member has been expelled by his/her party for some reasons between
15 that member and the party, but which reasons are totally outside the roles, duties
and responsibilities of that member as a legislator in Parliament.

Indeed, as legislators, a number of Members of Parliament are vested with

certain responsibilities and roles that may require them to take or not to take stands
on issues in respect of which the political parties upon which they were elected to
20 Parliament may be taking different stands. The case of the Speaker and Deputy
Speaker of Parliament is a case in point. Article 82 of the Constitution provides
that the Speaker and deputy Speaker of Parliament are to be elected by Members of
Parliament from among their members. Under Article 82 (7) (d) a
Speaker/Deputy Speaker vacates office on ceasing to be a Member of Parliament.
25 No business of Parliament shall be transacted in Parliament, other than the election
 of the Speaker, if the office of the Speaker is vacant. The Speaker and Deputy
Speaker may, as indeed they are now, belong to a political party.

The responsibilities of the office of Speaker of Parliament dictate that the

Speaker be as neutral as possible while managing the affairs of the House. This of
5 necessity may result in the Speaker not always taking the same stand as his/her
political party on whose ticket he/she is elected to Parliament. It is inconceivable
to assert that the framers of the Constitution intended that the Speaker of
Parliament would vacate her seat in Parliament if, for some reasons, the party to
which she happens to belong were to expel her from membership of the party,
10 asserting as it is being asserted now by the petitioners in Constitutional Petitions
16, 19 and 21 of 2013, that under Article 83 (1) (g) any Member of Parliament
expelled by his/her political party has to automatically vacate Parliament.

What is stated in respect of the Speaker of Parliament is also true of the Deputy
Speaker or some other Members of Parliament like Commissioners of the
15 Parliamentary Commission under the Parliamentary Commission Act created
under Article 87A of the Constitution and others serving as chairpersons and
members of the various committees and organs of Parliament where, because of
the special nature of the responsibilities of their respective offices, it may not be
possible for them to always follow or vote or manage the affairs of Parliament in
20 accordance with the dictates of the political parties upon whose tickets they were
elected into Parliament, even when under strict instructions by those parties to do
so.

Thus to interpret Article 83 (1) (g) and (h) as giving powers to political parties
to cause Members of Parliament to automatically vacate their seats in Parliament
25 through the avenue of expelling them from party membership would be to stifle the
 workings of Parliament as an independent arm of Government and thus undermine
democratic governance under a multi-party political system. Where, the
Constitution of Membership of Parliament, is such that there is a dominant party
forming Government, the force of the threat of being expelled from Parliament,
5 may easily bring about a near one party state type of governance that the
Constitution bars under its Article 75. That surely cannot be said to have been the
intention of the framers of the 1995 Constitution.

I appreciate that there is certainly need for legislators elected on the platform of
a particular political party to advance the cause of that party, where circumstances
10 do not dictate otherwise, in Parliament and also to the electorate. There is also
need to maintain discipline in political parties if they are to be effective organs
promoting democracy. Democracy also demands that a Member of Parliament on
changing from one political party to another, or to become an independent, the
electorate in the constituency should give approval or disapproval to such a change
15 by the Member involved vacating his/her seat in Parliament and subjecting
him/herself to the approval of the electorate through a by- election. But this must
be through a voluntary act of the Member of Parliament involved and must be in
respect of matters to do with the Member’s duties and role in Parliament and not
matters that have nothing to do with that role. Discipline in the whole process of
20 representation of the people, political parties inclusive, is maintainable by applying
the legal process that the Constitution and other laws have put in place.

Where a Member of Parliament who through his/her voluntary conduct leaves

his/her party on whose ticket the said member was elected to Parliament and joins
another party or remains independent, but refuses to do so or to state publicly and
25 openly that this is what he or she has done, then in such a case, the remedy
available to the political party demanding that this Member vacates his/her seat in
 Parliament is in Article 86 (1) (a) of the Constitution. That remedy is for the
political party to petition the High Court to declare the seat of the concerned
member vacant. The Article provides:

“86. Determination of question of Membership.

5 (1) The High Court shall have jurisdiction to hear and determine any
question whether –

(a) A person has been validly elected a Member of Parliament or the

seat of a Member of Parliament has become vacant;

(2) …………………………………………………………………….

10 (3) Parliament shall by law make provision with respect to-

(a) the persons eligible to apply to the High Court for determination of
any question under this article; and

(b) the circumstances and manner in which and the conditions upon
which any such application may be made.”

15 My appreciation of the law is that the act of vacating a seat in Parliament to

which a Member of Parliament was elected through a valid Parliamentary
election is by its own nature an election matter. Such an act is therefore
appropriately a matter that may be addressed by the Parliamentary
Elections Act [17 of 2005], which is an Act enacted by Parliament pursuant
20 to Article 76 whereby Parliament enacts laws on elections.

I come to this conclusion because there is no provision both in Article

76 of the constitution and section 86 of the Parliamentary Elections Act [17
of 2005] restricting the application of the said Article and section to a special
 category of members of Parliament, say, the disabled, the workers, the youth
and army representatives. The Article and the section seem to me to be of
general application to a situation of a member of Parliament in respect of
whom the issue of determination of a question of his/her membership to
5 parliament arises.

Section 86 of the Parliamentary Elections Act is a repeat, word for

word, of Article 86 (1) (a) (b) and (2) of the Constitution. Section 86 (3)
(4) (5) (6) and (7) sets out a procedure as to how the High Court is to be
accessed so as for that court to determine the question referred to in Article
10 86 of the Constitution and Section 86 of the very Act. Under Section 86
(5) of the same Act, given Article 86 (2) of the Constitution, a person
aggrieved by the decision of the High Court may appeal to the Court of
Appeal.

The procedure under the section requires that the one or group or entity
15 raising the issue that a particular Member of Parliament has to vacate the
seat in Parliament forwards an application in writing to the Attorney General
signed by not less than fifty registered voters stating that a question referred
to in Article 86 (1) of the Constitution and Section 86 (1) of the Act has
arisen stating the ground for coming to that conclusion. The Attorney
20 General has to petition the High Court within thirty days after receipt of the
application, and if he fails to do so, then those who submitted the application
to the Attorney General may directly petition the High Court for
determination of the question.

In my considered view the above procedure set out in Section 86 (3) and
25 (4) of the Parliamentary Elections Act caters very well for a political party
 seeking to have a seat in Parliament vacated because the Member of
Parliament holding that seat and who was elected on the ticket of that
political party has by his/her voluntary conduct, in carrying out his/her role
as Member of Parliament, without publicly stating so, left that party upon
5 which he/she was elected to Parliament and has joined another party or has
become an Independent in Parliament.

The political party concerned should be able to secure the requisite

number of at least fifty registered voters signing the application may be from
the electoral constituency of the Member of Parliament whose seat is being
10 sought to be vacated in Parliament. The procedure gives an opportunity to
the Attorney General to study and express himself/herself on the merits of
the demand of the political party requiring that its member vacates his/her
seat in Parliament and as such the political party is so advised by the Hon.
Attorney General about the merits of the demand. The procedure also brings
15 in the participation of the ordinary voters, possibly from the constituency of
the Member of Parliament whose Parliamentary seat is sought to be vacated,
whose signatures are necessary to support the demand.

The above notwithstanding, should the procedure to access the High

Court set out in Section 86 (3) and (4) be not the applicable one in the case
20 of a political party as petitioner, the absence of such a procedure, cannot in
any way affect, erode or diminish the jurisdiction vested in the High Court to
hear and determine any question whether “the seat of a Member of
Parliament has become vacant” by Article 86 (1) of the Constitution. If
the law to provide for the proper procedure is not there, then Parliament
25 should enact that law, but in the meantime, the High Court has to exercise
the jurisdiction vested in it by the Constitution and access to the High Court
 has to be done through some appropriate procedure available to access the
High Court. In my considered opinion, the procedure set out in Section 86
(3) and (4) of the Parliamentary Elections Act is appropriate.

By having the High Court decide whether the seat of the Member of Parliament
5 alleged to have “crossed the floor” has become vacant puts a burden upon the
political party seeking to have the seat declared vacant to prove its case for
asserting so, while at the same time the Member of Parliament concerned is heard
in defence as to why his/her seat in Parliament should not be declared vacant. The
court then proceeds to resolve the matter judiciously by taking into consideration
10 all the relevant factors necessary to reach a just decision, with a right of appeal to
the Court of Appeal by whoever is dissatisfied with the decision. Such a court
process of determination by the High Court of whether or not a vacancy of a
Member of Parliament has become vacant would result in creating discipline
between the Members of Parliament and their political parties upon whose tickets
15 they are elected to Parliament.

It has been submitted for the petitioners in Constitutional Petitions 16, 19 and
21 of 2013 that given that the ordinary meaning of the word to “leave” is “to go
away from”, “cease to live at a place or house”, cease to belong to a group”,
to go away”, “to stop living in” “to stop working for”, “to stop belonging to”,
20 therefore when used in Article 83 (1) (g) and (h) the word “leave” is neutral, and
as such there is no difference between a Member of Parliament who voluntarily
decides to leave his/her political party upon which he/she was elected to join
another political party or to remain an Independent in Parliament, and the one who
is forced to leave by being expelled from his/her political party.
 With the greatest respect I do not agree with that interpretation. The word to
expel is to be sent away by force or to force someone to leave or to dismiss
officially from an institution, school, club or body: See: Longman Dictionary
of Contemporary English: New Edition, 1987 page 354.

5 There is surely a difference between someone who voluntarily and through

personal choice takes a decision to go away from or to cease to live at a place or to
belong to a group and the one who by force is made to go away or to cease to live
at a place or to belong to a group. There is no free will on the part of the doer in
the case of the latter, while it is there in the case of the former.

10 It follows therefore that in terms of Article 83 (1) (g) and (h) the Member of
Parliament to fall under the ambit of that article has to, by exercise of his/her free
will, to decide to leave the political party for which he or she stood as a candidate
for election to Parliament, the same Member of Parliament has also, by exercise of
his/her free will, decide to join another party or, remain as an independent member,
15 or if elected as an Independent, to join a political party. Once these choices are
made by the Member of Parliament concerned, by the exercise of his or her free
will, and the member so communicates to the Speaker of Parliament and whoever
else is concerned, then the seat of this Member of Parliament becomes vacant.

On the other hand, in my considered view, if the political party upon whose
20 ticket the Member of Parliament concerned was elected to Parliament, comes to the
conclusion, on the basis of the evidence the party has, that this Member of
Parliament through the exercise of his/her free will has left the said political party
and has joined another one or has decided to remain in Parliament as an
Independent, and therefore by reason thereof, the seat of this Member of
25 Parliament should be declared vacant, then the political party under Article 86 (1)
 and Section 86 (1), (3) and (4) of the Parliamentary Elections Act takes steps to
have the High Court declare the seat of the concerned Member of Parliament
vacant.

In conclusion, in disagreement with my Lords of the majority judgement, I

5 answer issues 1, 4, 5 and 6 as hereunder:

Issue 1:

My answer is that expulsion of a Member of Parliament by and from the political

party upon whose ticket the said Member of Parliament was elected to Parliament
is not an automatic ground for a Member of Parliament to lose his/her seat in
10 Parliament under Article 83 of the 1995 Constitution of Uganda.

Expulsion of a Member of Parliament by his/her political party upon whose

ticket a Member was elected into Parliament may however be part of the evidence
of the grounds of the political party, where circumstances demand that the political
party petitions the High Court to have a seat of that Member of Parliament be
15 declared vacant under Article 86 (1) of the Constitution and Section 86 (1) (3)
and (4) of the Parliamentary Elections Act.

Issue 4:

The answer to this issue is that the 2nd, 3rd, 4th and 5th respondents to Constitutional
Petitions 16,19 and 21 of 2013 having not declared that they left the party upon
20 which they were elected to Parliament so as to join another political party or to
remain as Independents in Parliament, as concerns their roles and duties as
Members of Parliament, and the political party to which they still claim they
belong to having not moved the High Court for a declaration that the seats in
Parliament of these members be declared and the High Court has not declared the
 said seats vacant, I find that the continued stay in Parliament of the 2 nd, 3rd, 4th and
5th respondents, after their expulsion from the NRM party on whose ticket they
were elected in Parliament is not contrary to and/or inconsistent with Articles (1)
(1) (2) (4), 21 (1) (2), 29 (1) (e), 38 (1) 43 (1), 45, 69 (1) 71, 72 (1) 72 (2), 72 (4),
5 78 (1) 79 (1) (3) and 255 (3) of the Constitution.

Issues 5 and 6:

The answer is that the expelled MPs who left and/or ceased being members of the
National Resistance Movement political party, the petitioner in Constitutional
Petition No.21 of 2013, but who still claim that they are members did not vacate
10 their respective seats in Parliament and they are still Members of Parliament in
accordance with the Constitution.

Consideration of issues 9, 10, 11, 12 and 13.

These issues arise from and concern in the main Constitutional Petition No.25 of
2013: Hon. Abdu Katuntu (Shadow Attorney General) Vs The Attorney
15 General. The issues revolve upon the question whether the Honourable Attorney
General acted contrary to the Constitution in his advice dated 08.05.2013 to the Rt.
Hon. Speaker of Parliament relating to the request by the Secretary General of the
National Resistance Movement (NRM) political party that the Rt. Hon. Speaker
declares the Parliamentary seats of the 2 nd, 3rd, 4th and 5th respondents to
20 Constitutional Petitions 16, 19 and 21 of 2013 to be vacant by reason of the said
respondents having been expelled from the NRM political party. The Rt. Hon.
Speaker had in a statement to Parliament on 02.05.2013 stated that because of the
absence of a “clear unambiguous and unequivocal provisions of the law” to
empower her to make such a declaration she had restrained herself from acceding
25 to the request of the Secretary General of the NRM Party.
 The Honourable Attorney General after considering the decision taken by the
Rt. Hon. Speaker of Parliament and pointing out the relevant laws that, according
to him, applied to the situation, came to the conclusion that the 2 nd, 3rd, 4th and 5th
respondents, having been expelled from the NRM political party, cannot legally
5 hold their seats and were now “Aliens” in the 9th Parliament, their continued stay
in Parliament being illegal and an abuse of the law. The Hon. Attorney General
then advised, in his capacity as the Principal Legal Adviser of the Government, the
Rt. Hon. Speaker to reverse her decision of not declaring vacant the seats of the
2nd, 3rd, 4th and 5th respondents because it was unconstitutional.

10 Constitutional Petition No.25 of 2013 faults the Attorney General that his
advice contravenes the Constitution in that it wrongly advises that only members
of political parties and representatives of the army are the only ones who sit in
Parliament, that the 2nd, 3rd, 4th and 5th respondents are no longer Members of
Parliament by reason of their expulsion from NRM party and therefore their seats
15 are vacant, that the Attorney General cannot advise the Speaker to reverse her
ruling. The petition seeks declarations that the said acts are unconstitutional.

The Attorney General as respondent maintained he acted in accordance with the

Constitution.

No evidence was adduced to this court as to what action, if any, had been taken by
20 the Rt. Hon. Speaker or Parliament on the advice the Hon. Attorney General had
rendered to the Rt. Hon. Speaker. The advice thus remains not acted upon.

Under Article 119 (3) The Attorney General is the principal legal adviser of
the Government, and carries out under Article 119 (4) the functions of giving legal
advice and legal services to the Government on any subject, draws and peruses
25 agreements, contracts, treaties, conventions and other documents to which the
 Government is a party or in which the Government has an interest, represents the
Government in courts of law and in other proceedings to which the Government is
a party and performs other functions assigned to him/her by the President or by
law. Every agreement, contract, treaty, convention or any document relating to a
5 transaction in which the Government has an interest must be concluded with legal
advice having been obtained from the Attorney General, unless Parliament by law
directs otherwise.

Courts in Uganda have pronounced themselves as to the effect and import of the
legal advice that the Attorney General renders to Government its institutions and
10 agencies.

While the Attorney General has a dual role as the Government principal legal
adviser on both political and legal issues, as adviser on legal matters the Attorney
General is a law officer and as such his/her advice on legal matters must be geared
towards advancing the ends of justice. It is thus the duty of the Attorney General
15 in discharging such responsibilities, to consult and access relevant information and
advice from legitimate sources, including appropriate relevant advisers, so that the
Attorney General informs himself/herself of all circumstances relevant to the
advice and decision he/she is to render: See: The attorney General, Politics and
the Public interest, 1984, by John L.J. Edwards, referred to in the judgement of
20 G.W. Kanyeihamba, JSC, as he then was, in Bank of Uganda V Banco Arabe
Espanol: Civil Appeal No.1 of 2001 (SC).

The opinion of the Attorney General authenticated by his/her own hand and
signature about the laws of Uganda and their effect, binding nature of any
agreement, contract or other legal transaction in as much as the same concern the
25 Government, ought to be accorded the highest respect by government, public
 institutions and their agents and unless there are other agreed conditions, third
parties are entitled to believe and act on that opinion without further enquiries or
verification.

Where the Government, any other public Institution or body in which the
5 Government has an interest treats and deals with the advice of the Attorney
General in such a way that on the basis of the said advice the rights and interests of
third parties are affected, then the Government or public institution or body in
which the Government has interest is estopped, as against those third parties, from
questioning the correctness or validity of that Attorney General’s legal opinion:
10 See: Bank of Uganda V Banco Arab Espanal (supra).

Where, as one representing the Government in a court of law or Tribunal, the

Attorney General decides to take a certain action or not to take action, in the case
before the court or Tribunal such a decision of the Attorney General cannot be
challenged by another Government department, public Institution or body in which
15 government has an interest: See: Gordon Sentiba And 2 Others V Inspectorate
of Government: Civil Appeal No.6 of 2008 (SC).

Public institutions created under the 1995 Constitution such as the Electoral
Commission, Judicial Service Commission and others that are mandated under the
Constitution to carry out their work independently without being subjected to the
20 control of any one, can be advised by the Attorney General, and while they must
respect and take such advice as very persuasive, they are not bound to follow the
advice of the Attorney General if to do so would compromise their constitutional
role to act independently and without being subjected to the control or direction of
any one authority. In this regard courts of law as the third arm of the state are not
25 bound by the advice of the Attorney General: See: Constitutional Court
 Constitutional Petition No.1 of 2006: Kabagambe Asol And 2 Others Vs The
Electoral Commission And Dr. Kizza Besigye.

From the ordinary natural meaning of the English words: “advise, advice and
advisor” an advice is never binding on the entity being advised. Therefore
5 although the Attorney General is principal advisor of Government, the Constitution
does not provide anywhere that such advice amounts to a directive that must be
obeyed. Such advice while persuasive is subject to the Executive or Cabinet
decision. See: Kabagambe Asol case (supra)

From the above analysis of the law as to the import and effect of the legal
10 advice from the Attorney General, it is to be appreciated that Parliament, as the
second Arm of Government, is part of Government and therefore has the Attorney
General as principal legal adviser under Article 119 (3) of the Constitution.

I therefore, in agreement with their Lordships of the majority judgement, hold

that the Honourable Attorney General acted within his constitutional powers to
15 offer legal advice dated 08.05.2013 to the Rt. Hon. Speaker of Parliament.

The Speaker is the head of Parliament which is the second arm of Government,
the first being the Executive and the third the Judiciary. Parliament is created by
Article 77 of the Constitution and consists of Members directly elected
representing constituencies, one woman representative from each district,
20 representatives of the army, the youth, workers and persons with disabilities, as
well as the Vice President and Ministers.

The main function of Parliament is that it is vested by the constitution with

power to make laws on any matter for the peace, order, development and good
governance of Uganda: See: Article 77. In exercising that power, Parliament is
25 only subject to the Constitution. It follows therefore that Parliament acts
 independent of any other authority or body, except the Constitution. It is therefore
only in instances where the constitution provides that the exercise of power of
Parliament be subjected to some other authority that that other authority may
interfere with the work of Parliament. For example under Article 137 of the
5 Constitution, the constitutional court may determine whether or not an Act of
Parliament was enacted by Parliament in accordance with the constitution.

Therefore Parliament, while it must give all the respect to, cannot be bound by
the advice of the Attorney General because no provision of the Constitution
provides so. It follows therefore that as head of Parliament, the Rt. Hon. Speaker
10 of Parliament, while bound to give the highest respect to the advice of the Hon.
Attorney General, was not bound to follow the Hon. Attorney General’s advice
that she reverses her decision of retaining in Parliament the 2 nd, 3rd, 4th and 5th
respondents to Constitutional Petitions numbers 16 and 21 of 2013 after they
had been expelled from membership of the NRM party upon whose ticket they had
15 been elected to Parliament.

Specifically in answer to issue number 9, I too, like the majority judgement,

find that the Honourable Attorney, through possibly a slip of the pen, mistakenly
stated in his advice on page 6 thereof that the only members provided for to
constitute Parliament are Members of political parties and representatives of the
20 army; and then later on the same page at the bottom, he mentioned the categories
as being only Members of Parliament representing political parties, representative
of the army and Independents. The Honourable Attorney General went on to
explain on page 7 of his advice why the 2 nd, 3rd, 4th and 5th respondents had become
“Aliens” in the Parliament of Uganda after they had been expelled from the NRM
25 political party.
 The Honourable Attorney General properly referred to Article 78 of the
Constitution which clearly sets out the categories of those who constitute
parliament. He would not have referred to the Article if his intention was to
distort, contrary to the Constitution, the categories of members that constitute the
5 composition of Parliament. I am satisfied that it was a mere mistake on the part of
the Honourable Attorney General not to set out in his advice all categories that
constitute Parliament as Article 78 provides. I therefore hold that issue Number 9
does not raise a question for constitutional interpretation. It was framed basing on
an obvious mistake by the Honourable Attorney General in failing to set out in his
10 advice all the categories of members that constitute Parliament as set out in Article
78 of the Constitution.

As to issues 10, 11, 12, my resolution of issues 1, 4, 5 and 6 has a bearing on

these issues. This resolution, which is contrary to the resolution of the majority
judgement, is that the expulsion of a Member of Parliament by the political party
15 upon whose ticket that member was elected to Parliament does not automatically
result in that member vacating his/her seat in Parliament. The seat of a Member of
Parliament may be vacated under Article 83 (1) (g) and (h) only under
circumstances I have already set out while dealing with issues 1, 4, 5 and 6 earlier
on in this judgement.

20 Further, as already held above, the advice of the Honourable Attorney General,
though deserving all the highest respect possible is not binding upon the Rt. Hon.
Speaker of Parliament, since Parliament of which the Rt. Hon. Speaker is head,
carries out its functions as the second arm of Government only subject to the
Constitution. The Constitution does not provide that the advice of the Attorney
25 General shall be binding upon Parliament. To the extent therefore that issues 10,
11 and 12 arise from the advice of the Hon. Attorney General to the Rt. Hon.
 Speaker of Parliament, which advice has no binding effect upon the Rt. Hon.
Speaker of Parliament, and which advice was never acted upon the said issues do
not deserve any further consideration by way of interpreting the Constitution.

Issue number 13 questions whether the Honourable Attorney General’s advice

5 to the Honourable Speaker to reverse her decision retaining in Parliament the four
expelled Members of Parliament, was not inconsistent and/or contrary to Article
137 of the Constitution given the fact that the Honourable Attorney General
rendered the said advice on 08.05.2013 after Constitutional Petition No.16 of
2013 to which the Attorney General was the first respondent, had already been
10 lodged in this court.

I find that Article 119 of the Constitution does not prescribe as to when or
under what circumstances the Attorney General is supposed to give legal advice
and legal services to the Government or an arm of Government like Parliament on
any subject. The Constitution makes this to be a preserve of the Attorney General.

15 Constitutional Petition Number 16 of 2013 was lodged in the Constitutional

Court on 06.05.2013 and the advice of the Attorney General to the Speaker was
rendered on 08.05.2013. The petitioner in Constitutional Petition No.25 of 2013
did not adduce evidence to this court to show whether by the 08.05.2013 the
Honourable Attorney General had already been served with Constitutional
20 Petition No.16 of 2013. What is obvious is that the said petition was merely
pending in the Constitutional Court by the time the Attorney General rendered his
advice to the Speaker and as such there was no inconsistency with or contravention
of Article 137 of the Constitution by the Honourable Attorney General in
rendering the said advice. I so resolve.
 Constitutional Petition No.25 of 2013 has issues arising out of the Hon.
Attorney General’s advice dated 08.05.1013. As I have already resolved, the said
advice is not binding upon the Rt. Hon. Speaker of Parliament or Parliament itself.
Further the Constitutional Petition No.25 of 2013 does not assert that any action
5 has been taken by anyone with regard to that advice. In my considered view, no
cause of action arises out of such advice to give the petitioner locus to petition the
Constitutional Court for declarations relating to contents of such advice.

Issues 2, 3 and 8: I will consider these issues together as they are interrelated.
Issue number 2 is whether the act of the Speaker in ruling on 02.05.2013 that the
10 four Members of Parliament expelled from the NRM political party for which they
stood as candidates for election to Parliament, are to retain their respective seats in
Parliament is inconsistent with or in contravention of the Constitution. Issue
number 3 is whether by ruling as she did the Right Honourable Speaker created a
category of Members of Parliament, peculiar to and thus inconsistent with and/or
15 contrary to the constitution. Issue 8 is whether the Right Honourable Speaker of
Parliament had jurisdiction to act as she did.

Specifically in respect of issue number 3, I have already resolved, while dealing

with issues 1, 4, 5 and 6 that, under Article 83 (1) (g) and (h) of the Constitution,
expulsion of a Member of Parliament from membership of and by the political
20 party on whose ticket the said member was elected to Parliament does not, per se,
automatically result in that Member of Parliament vacating his/her seat in
Parliament. The Right Honourable Speaker, therefore, in my considered view
arrived at the correct decision consistent and not in contravention of the
Constitution.
 As to whether the Right Honourable Speaker was seized of jurisdiction under
the Constitution to act as she did (issue No.8), Article 82 of the Constitution
provides that:

“82. Speaker and Deputy Speaker of Parliament.

5 (1) …………………………..

(2) …………………………….

(3) …………………………

(4) Subject to article 81 (4) of this Constitution, no business shall be

transacted in Parliament other than an election to the office of Speaker
10 at anytime that office is vacant.”

Article 81 (4) requires every Member of Parliament to take and subscribe to the
oath of allegiance and that of a Member of Parliament.

Article 79 provides for the business that Parliament transacts and only when the
office of Speaker is not vacant, namely: to make laws on any matter for the peace,
15 order, development and governance of Uganda. Parliament also protects the
Constitution and promotes democratic governance of Uganda.

The Rt. Hon. Speaker therefore is vested with jurisdiction under the
Constitution to handle, deal with and give directions on any matters that relate to
the business of Parliament as is vested in Parliament by Article 79. In exercising
20 those powers the Rt. Hon. Speaker is subject to the Constitution, the laws that
Parliament may enact under the Constitution and to the Rules of Procedure of
Parliament of Uganda.
 Under Rule 7 of the Rules of Procedure of Parliament, the Speaker presides at
any sitting of the House, preserves order and decorum in the House. In case of any
doubt for any question of procedure not provided for in the Rules, the Speaker
decides on that issue, having regard to the practices of the House, the
5 Constitutional provisions and practices of other Commonwealth Parliaments in so
far as they may be applicable to Uganda’s Parliament.

It is a fact that on 16.04.2013 the Secretary General of the NRM political party,
Hon. Amama Mbabazi, requested in writing the Rt. Hon. Speaker to declare the
seats of the four expelled MPs vacant because the NRM political party upon whose
10 ticket each of the said MPs had been elected to Parliament, had expelled each of
the four MPs from membership of the party.

The request in my considered view, is a matter that constituted business of

Parliament in terms of Articles 79 and 82 of the Constitution and also falls under
the ambit of the Rules of Procedure of the Parliament of Uganda.

15 The Rt. Hon. Speaker had to deal with the request made to her office by the
Hon. Secretary General of the NRM party. The way the Rt. Hon. Speaker chose to
handle the request is as per her statement to Parliament on 02.05.2013. Parliament
received the statement of the Rt. Hon. Speaker and no further action was taken
upon it by Parliament there and then or thereafter. The issue then came to the
20 Constitutional Court through the consolidated Constitutional Petitions, the subject
of this judgement.

It is my finding, given the state of the law as applied to the facts before this
court, that the Rt. Hon. Speaker had the jurisdiction to act as she did and as such
her act was not inconsistent or in contravention of the Constitution.
 Whether by ruling that the four expelled MPs remain in Parliament, the Rt.
Hon. Speaker of Parliament created a peculiar category of MPs in Parliament
unknown to and being inconsistent with and/or in contravention of the
Constitution, I note that Article 78 of the Constitution sets out those who
5 constitute Parliament. These are: Members directly elected to represent
constituencies, one woman representative for every district, representatives of the
army, youth, workers and persons with disabilities, the Vice President and
Ministers, who if not already elected Members of Parliament, are ex officio
Members of Parliament with no right to vote on an issue requiring a vote in
10 Parliament.

While Rule 9 of the Rules of Procedure of Parliament provides that in the

House, the seats to the right hand side of the Speaker are for Members of the
political party in power and those on the left are for the members of parties in
opposition, the said Rule must be applied and interpreted subject to the
15 Constitution. Article 78 mandates the Rt. Hon. Speaker to seat in the House any
member directly elected to represent a constituency in the House. Indeed Rule 9
(1) of the Rules of Procedure of Parliament provides that:

“9. Sitting arrangement in the House.

(1) Every Member shall, as far as possible, have a seat reserved for him or
20 her by the Speaker.”

The Rt. Hon. Speaker, after having considered the request of the Secretary General
of the NRM party to declare the seats of the four Members of Parliament expelled
by the party vacant, arrived at the conclusion that the law did not give her powers
to do so. The Rt. Hon. Speaker then ruled that the four MPs remain in Parliament
25 and found places for them where to sit and transact business of Parliament as
 elected Members of Parliament representing constituencies on the basis that,
according to the Rt. Hon. Speaker, ( and now as I have held in this Judgement), the
expulsion of the said Members of Parliament from membership of the political
party upon which the said member were elected to Parliament did not
5 automatically result in having their seats declared vacant.

I therefore hold that the Rt. Hon. Speaker of Parliament acted within and not in
contravention of the Constitution when she ruled that the 2 nd, 3rd, 4th and 5th
respondents remain in Parliament as members directly elected to represent
constituencies. It is up to those members to transact their Parliamentary business
10 in compliance with the dictates of the party they claim they still belong to, upon
which they were elected to Parliament, or on the other hand, it is up to the said
political party to petition the High Court under Article 86 (1) to have the seats of
the said Members of Parliament declared vacant on the basis that the party upon
which they were elected in Parliament has expelled them. It is not the Rt. Hon.
15 Speaker to resolve that dispute between the said four MPs and the political party
upon which they were elected to Parliament. The responsibility of the Rt. Hon.
Speaker under Rule 9 of the Rules of Procedure of Parliament is to “have a seat
reserved” for the said four Members of Parliament.

Issue No.7

20 This is whether the court should grant a temporary injunction stopping the 2 nd, 3rd,
4th and 5th respondents to Constitutional Petitions numbers 16, 19 and 21 of
2013 from sitting in Parliament pending determination of the consolidated petitions
or as a permanent injunction.

On 06.09.2013 in a dissenting ruling, I declined to entertain the issue of

25 granting or not granting a temporary injunction at that stage of the court
 proceedings when only what remained was delivery of the final judgement in the
consolidated petitions. Their Lordships of this Court in a majority decision issued
the prayed for temporary injunction.

I now deal with the issue whether or not a temporary injunction ought to have
5 been granted to the petitioners in Constitutional Petitions 16 and 21 of 2013
stopping the 2nd, 3rd, 4th and 5th respondents as members expelled by the political
party upon which they were elected to Parliament from sitting in Parliament
pending determination of the consolidated constitutional petitions.

The petitioners in Constitutional Petitions 16 and 21 of 2013 through

10 Constitutional Applications numbers 14 and 23 of 2013 applied for the above
stated injunction first as against the Attorney General only, but later on application
of the 2nd, 3rd, 4th and 5th respondents, they too were added on the applications as
respondents. For reasons already given in my ruling of 06.09.2013 the
Constitutional Court ordered that the two Constitutional Applications 14 and 23
15 of 2013 be heard and disposed of together with the consolidated petitions.

A court injunction is an order which either prohibits (a prohibitory

injunction) or requires one to do ( a mandatory injunction) a particular act or thing.
A breach of a court injunction is punishable as contempt of court and may, in some
circumstances, lead to imprisonment.

20 The grant of an injunction by court is within the discretionary powers of the

court. The test for consideration by court whether or not to grant an injunction is
whether the applicant has made out a case as to whether there is a fair and bonafide
question to be tried, whether damages would be an adequate remedy and, in case of
doubt as to these two, whether the balance of convenience favours the grant of an
25 injunction. See: Giella V Cassman Brown and Company [1973] EA 358 and
 also : Noormohamed Jan-Mohamed Vs Kassamali Virjl Madhani [1963] 1
EACA 8.

In practice, however, an applicant for a mandatory injunction has a higher burden

to establish his/her case to be granted such an injunction than the one seeking a
5 prohibitory one. This is because a mandatory injunction, if granted, imposes an
additional degree of hardship or expense on the victim of the injunction. Therefore
the jurisdiction as to a mandatory injunction is such that:-

“It is a jurisdiction to be exercised sparingly and with caution but, in the

proper case, unhesitatingly.” See: Redland Bricks Ltd V Morris [1970] AC
10 652.

The injunction sought in Constitutional Applications 14 and 23 of 2013 was

mandatory in nature in that it required, if granted by Court, the Rt. Hon. Speaker of
Parliament not to implement her ruling of 02.05.2013 whereby she retained in
Parliament the four MPs expelled by their NRM political party, by restraining
15 those same MPs from entering; sitting in Parliament or participating in any
parliamentary proceedings or accessing premises, precincts of Parliament until the
disposal of the consolidated constitutional petitions or until further orders of the
court.

The application for the mandatory injunction was based, according to the
20 applicants, on the fact that the 2nd, 3rd, 4th and 5th respondents, having been expelled
by the NRM political party from membership of that party, each one of them had
ceased to be a Member of Parliament and by reason thereof their respective seats in
Parliament had been vacated and so each one ought not to be in Parliament.
 Obviously therefore the application for the temporary injunction, mandatory in
nature, was based upon the very issues to be resolved by the Constitutional Court
in the consolidated Constitutional Petitions numbers 16, 19, 21 and 25 of 2013.

In my humble view, given the fact that the issues to be resolved in the
5 consolidated Constitutional Petitions, particularly numbers 16 and 21 of 2013,
were not straight forward and clear cut but were complicated issues involving
interpretation of the Constitution and being determined, on their special facts, for
the first time by the Constitutional Court, the applicants for the injunction never
made out a case, that this was the nature of the case where an application for a
10 mandatory injunction should have been made.

Further, the overriding consideration for an injunction is to preserve the status

quo, but not to create a new one. The status quo in this case was that the 2 nd, 3rd, 4th
and 5th respondents to Constitutional Petitions 16 and 21 of 2013 were and are
sitting Members of Parliament representing their respective constituencies having
15 been validly elected as such on the NRM political party ticket. The petitioners in
the consolidated Constitutional Petitions numbers 16, 19 and 21 of 2013 assert
that this status of the 2 nd, 3rd, 4th and 5th respondents should now change to a new
status whereby the said respondents, not being Members of Parliament because of
their having been expelled by and from the political party upon whose ticket they
20 were elected to Parliament, have to vacate Parliament and their seats declared
vacant so that fresh elections are held in their respective constituencies. It is in
effect because there is a dispute as to whether or not the alleged new status is valid
or not under the Constitution that this Constitutional Court is being called upon, to
resolve the dispute through the said consolidated constitutional petitions. It was
25 therefore not proper, in my view, for the petitioners in Constitutional Petitions
numbers 16 and 21 of 2013, to seek to obtain a mandatory injunction purporting
 to preserve a status whose constitutional legitimacy was the very issue the very
petitioners were calling upon the Constitutional Court to pronounce upon through
Constitutional petitions 16 and 21 of 2013.

For the above reasons I would not have granted a temporary injunction prayed
5 for in Constitutional Applications 14 and 23 of 2013.

Now in this judgement, by reason of the findings and holdings I have made in
respect of the framed issues, particularly my holding that the expulsion of a
Member of Parliament by his/her political party, on whose ticket he/she was
elected to Parliament does not automatically result in the Parliamentary seat of that
10 member becoming vacant, I refuse to grant the prayed for injunction.

In conclusion by way of remedies I hold that:

1. The expulsion from a political party is not an automatic ground for a

Member of Parliament to lose his or her seat in Parliament under Article 83
of the 1995 Constitution but

15 (i) Where a Member of Parliament elected to Parliament on the ticket of

a political party voluntarily leaves that party to join another political
party or to remain an Independent in Parliament or having been an
Independent in Parliament joins a political party, then that member
vacates Parliament under Article 83 (1) (g) and (h).

20 (ii) In any other cases, where the political party upon whose ticket a
Member of Parliament was elected to Parliament, asserts that the said
Member of Parliament through his/her voluntary conduct, has left that
party and joined another one or has remained an Independent in
Parliament, or having been elected as an Independent he/she has
 joined a political party, but that the said member has refused to
declare to that effect, the issue whether the seat of that Member of
Parliament has become vacant must be resolved upon by the High
Court under Article 86 (1) of the Constitution. The political party
5 concerned may use the evidence of the expulsion of such a member as
part of the evidence in establishing a case against the Member of
Parliament in a question as to why his/her seat should not be declared
vacant by the High Court.

2. The Ruling of the Right Honourable Speaker of Parliament dated 02.05.2013

10 that the 2nd, 3rd, 4th and 5th respondents to Constitutional Petitions numbers
16, 19 and 21 of 2013, remain in Parliament did not contravene any
provision of the Constitution.

3. The Rt. Hon. Speaker of Parliament did not create a peculiar category of
MPs, unknown and contrary to the Constitution by ruling as she did in (2)
15 above.

4. The continued stay of the 2nd, 3rd, 4th and 5th respondents after their expulsion
from the NRM political party on whose ticket they were elected to
parliament is not contrary to or inconsistent with the Constitution.

5. The said 2nd, 3rd, 4th and 5th respondents did not vacate their seats in
20 Parliament. They are still Members of Parliament under the Constitution.

6. No temporary injunction or any injunction at all stopping the 2 nd, 3rd, 4th and
5th respondents from sitting in Parliament should be granted.

7. The Rt. Hon. Speaker of Parliament had the jurisdiction to make the orders
she made and she acted within and in compliance with the Constitution.
 8. The Act of the Hon. Attorney General of advising the Speaker and
Parliament is not inconsistent or contrary to the Constitution, but the said
advice, while deserving all the respect from the Rt. Hon. Speaker is not
binding upon the Speaker, let alone Parliament, as the second arm of
5 Government. To this extent, it is unnecessary in this case for court to
determine the constitutionality or unconstitutionality of the nature of advice
the Hon. Attorney General gave the Rt. Hon. Speaker, except in as far as that
advice was part and parcel of the independent issues arising from
Constitutional Petitions numbers 16, 19 and 21 of 2013 which have been
10 resolved upon separately in this judgement.

Having resolved the issues as above I decline to grant the declarations

prayed for in Constitutional Petitions numbers 16, 19 and 21 of 2013,
Constitutional Applications numbers 14 and 23 of 2013 as well as the
first respondent’s (Attorney General) cross petition to Constitutional
15 Petition No.21 of 2013. The said Constitutional Petitions, cross-petition
and applications stand dismissed.

As to Constitutional petition No.25 of 2013, to the extent that the

advice of the Attorney General is not binding upon the Rt. Hon. Speaker and
Parliament as the second arm of Government, I find that on the mere basis of
20 securing a copy of the said advice, which advice has not been acted upon,
does not vest in the petitioner to that petition a cause of action to petition the
Constitutional Court for the declarations he prays for which are all about the
contents of such advice. Accordingly Constitutional Petition No. 25 of
2013 is also dismissed by reason thereof.
 As to costs, the consolidated petitions raised issues of great public
importance as regards the constitutional inter-relationship of political parties
and Parliament, the office of Attorney General and that of the Speaker of
Parliament and the functioning of the three arms of Government: The
5 Executive, the Legislature and the Judiciary. It is therefore only fair and
fitting that no particular party to the consolidated petitions and applications
be punished by way of costs. I accordingly order that each party bears its
own costs of all the proceedings in the consolidated constitutional petitions,
cross petition and the applications.

10 Lastly I wish to thank counsel of all parties for the detailed research,
exposition and clarity of submissions. This court was very much assisted by
such. Thank you so much.

Dated at Kampala this 21st day of February, 2014.

15

Remmy Kasule
JUSTICE OF CONSTITUTIONAL COURT

20