Basotho National Party v Management Board, Lesotho Highlands Revenue Funds and Others (CIV/APN 335 of 95) [1996] LSHC 90 (13 September 1996)

C I V / A P N / 3 3 5 / 95 IN T HE H I GH C O U RT OF L E S O T HO In t he m a t t er b e t w e en B A S O T HO N A T I O N AL P A R TY A p p l i c a nt and T HE M A N A G E M E NT B O A R D, L E S O T HO H I G H L A N DS R E V E N UE F U ND T HE M I N I S T ER OF F I N A N CE T HE A T T O R N E Y - G E N E R AL 1st R e s p o n d e nt 2nd R e s p o n d e nt 3rd R e s p o n d e nt J U D G M E NT D e l i v e r ed by t he H o n o u r a b le M r. J u s t i ce M . M. R a m o d i b e di on t he 13th day of S e p t e m b e r, 1 9 9 6. T h is is an o p p o s ed a p p l i c a t i on b r o u g ht on N o t i ce of M o t i on in w h i ch t he A p p l i c a nt s e e ks f or an o r d er in t he f o l l o w i ng t e r m s :- 1. D e c l a r i ng t he a p p r o v al and c o n s e q u e nt d i s b u r s e m e nt of m o n i es o ut of t he L e s o t ho H i g h l a n ds R e v e n ue Fund by F i r st R e s p o n d e nt to i n d i v i d u al M e m b e rs of P a r l i a m e nt and C o n s t i t u e n cy D e v e l o p m e nt C o m m i t t e es to be i l l e g a l, i r r e g u l a r, s e c t a r i an and c o n t r a ry to t he s p i r it and l e t t er of L e g al N o t i ce N o. 91 of 1 9 9 2; 2. P r o h i b i t i ng F i r st R e s p o n d e nt f r om f i n a n c i a l ly s p o n s o r i ng any p r o j e c ts by any o ne p o l i t i c al p a r ty or d e s i g n ed to e n h a n ce t he i m a ge of s u ch p o l i t i c al p a r t y ;; - 2- 3. In t he a b s e n ce of P a r l i a m e n t a ry a p p r o p r i a t i on P r o h i b i t i ng S e c o nd R e s p o n d e nt f r om a u t h o r i s i ng a ny f u r t h er p a y m e n ts o ut of t he C o n s o l i d a t ed F u nd i n to t he L e s o t ho H i g h l a n ds R e v e n ue F u nd in P u r s u a n ce of R e g u l a t i on 5 ( 1) ( a) of L e g al N o t i ce N o. 91 of 1 9 9 2; 4. D i r e c t i ng R e s p o n d e n ts to p ay t he c o s ts h e r e o f. 5. F u r t h er or a l t e r n a t i ve r e l i e f. On 2 8 th A u g u s t, 1 9 96 w h en t he m a t t er w as a r g u ed b e f o re me M r. M a k h e t he f or t he r e s p o n d e n ts r a i s ed a p o i nt in l i m i ne to t he e f f e ct t h at t he A p p l i c a nt h as no l o c us s t a n di in j u d i c io to b r i ng t h is a p p l i c a t i on to c o u r t. He s u b m i t t e d, in a n u t s h e l l, t h at t he A p p l i c a nt h as no l e g al s t a n d i ng to s ue on b e h a lf of t he p u b l ic as it is n ow s e t t l ed l aw t h at t he R o m an L aw " a c t io p o p u l a r i s" h as l o ng b e c o me o b s o l e t e. I o b s e r ve at o n ce t h at t he p r i n c i p le of l aw s t a t ed in M r. M a k h e t h e 's s u b m i s s i on as a f o r e s a id is s o u nd l aw i n d e e d. It is n ow t r i te l aw t h at " t he r i g ht of a p r i v a te p e r s o n, or a s s o c i a t i on of p e r s o n s, is l i m i t ed to p r o s e c u t i ng a c t i o ns in h is or i ts o wn i n t e r e st a nd he or it h as no t i t le to i n s t i t u te t h em in t he i n t e r e st of t he p u b l ic " p er T e b b u tt A JA in L e s o t ho H u m an R i g h ts A l e rt G r o up v T he M i n i s t er of J u s t i ce & H u m an R i g h ts a nd 2 o t h e rs C of A ( C I V) N o. 27 of 1 9 9 4. In my j u d g m e nt t he o n us is on t he A p p l i c a nt to p r o ve on a b a l a n ce of p r o b a b i l i t i es t h at he h as l o c us s t a n di to b r i ng t h is a p p l i c a t i o n. 3 / . .. - 3- In t h is r e g a rd I o b s e r ve at o n ce t h at t he f o u n d i ng a f f i d a v it of E v a r i s t us R e t s ' e l i s i t s oe S e k h o n y a na d o es n ot d e al w i th t h is a s p e ct at a l l. T h e re a re a b s o l u t e ly no a v e r m e n ts as s u ch to s h ow t h at t he A p p l i c a nt h as l o c us s t a n di to b r i ng t h is a p p l i c a t i o n. It is t h e r e f o re n e c e s s a ry to e x a m i ne t he e n t i re b o dy of e v i d e n ce f r om a ll t he a f f i d a v i ts a nd d o c u m e n ts b e f o re me to d e t e r m i ne w h e t h er d e s p i te l a ck of s p e c i f ic a v e r m e n ts t h e r e to t he A p p l i c a nt n e v e r t h e l e ss d o es h a ve t he r e q u i r ed l o c us s t a n d i. It w as p a r t ly f or t h is r e a s on t h at t he c o u rt r u l ed t h at t he q u e s t i on of l o c us s t a n di be a r g u ed t o g e t h er w i th t he m e r i ts of t he c a se as d e p o s ed to in t he a f f i d a v i ts a nd h a v i ng r e g a rd to t he l aw a nd a ny r e l e v a nt s t a t u t e s. T he o t h er r e a s on of c o u r se w as in c a se I f o u nd m y s e lf u n a b le to m a ke an i m m e d i a te r u l i ng on t he p o i nt in l i m i ne w h i ch m i g ht h a ve t he e f f e ct of c o n c l u d i ng t he m a t t er in f a v o ur of e i t h er p a r ty w i t h o ut t he n e c e s s i ty of g o i ng i n to t he m e r i t s. I f i nd m y s e lf in v e ry g o od c o m p a ny in t h is a p p r o a ch as it h as b e c o me i n c r e a s i n g ly c o m m on f or t he q u e s t i on of l o c us s t a n di to be c o n s i d e r ed t o g e t h er w i th t he m e r i ts of t he c l a i m. S ee K e n d r i ck v C o m m u n i ty D e v e l o p m e nt B o a rd 1 9 83 ( 4) S . A. 5 3 2. S ee a l so T he A d m i n i s t r a t o r, T r a n s v a al a nd T he F i rs I n v e s t m e n ts ( P t y) L t d. v J o h a n n e s b u rg C i ty C o u n c il 1 9 71 ( 1) S . A. 56 ( A) in w h i ch t he q u e s t i on of l o c us s t a n di w as r a i s ed f or t he f i r st t i me in t he a p p e a l. It is c o n v e n i e nt at t h is s t a ge to e x a m i ne t he s t a t u t o ry p r o v i s i o ns on w h i ch t h is a p p l i c a t i on is b a s e d. I d e em it n e c e s s a ry to r e p r o d u ce t he r e l e v a nt s e c t i o ns of t he F i n a n ce 4 / . .. -4- ( L e s o t ho H i g h l a n ds R e v e n ue F u n d) R e g u l a t i o n s, 1 9 9 2) in f u ll e v en at t he r i sk of o v e r b u r d e n i ng t h is j u d g m e nt in o r d er to d e t e r m i ne w h e re t he A p p l i c a nt f e a t u r es by w ay of l o c us s t a n di if a n y. In d o i ng so it is t he t a sk of t h is c o u rt to d e t e r m i ne w h e t h er a p p l i c a nt h as a d i r e ct or s u b s t a n t i al i n t e r e st c a p a b le of l e g al e n f o r c e m e nt in t he m a t t e r. T he a f o r e s a id R e g u l a t i o ns p r o v i de in p a r t :- " 3. T he p u r p o se of t he F u nd s h a ll be to m a i n t a in a nd e n h a n c e, on a s u s t a i n a b le b a s i s, t he l i v i ng s t a n d a r ds of a ll t he p e o p le of L e s o t h o. 4. T he o b j e c t i v es of t he F u nd s h a ll b e, ( a) to p r o m o te e c o n o m ic d e v e l o p m e nt a nd d i v e r s i- f i c a t i on t h r o u gh c a p i t al e x p e n d i t u r es on p r o j e c ts c o n s i s t e nt w i th L e s o t h o 's P u b l ic S e c t or I n v e s t m e nt P r o g r a m m e, a nd t h r o u gh an e n h a n c e m e nt of t he c a p a c i ty of p u b l ic a nd p r i v a te i n s t i t u t i o ns to i d e n t i f y, p r e p a re a nd i m p l e m e nt s u i t a b le p r o j e c t s; ( b) to s t a b i l i se G o v e r n m e nt r e v e n ue u n d er c i r c u m- s t a n c es of a t e m p o r a ry r e d u c t i on in n o n- p r o j e ct r e v e n u e s; and ( c) to g e n e r a te s u p p l e m e n t a ry l o n g - t e rm r e v e n ue f l o ws f or t he G o v e r n m e nt f r om i n c o me d e r i v ed f r om i n v e s t m e n t s. 5. ( 1) T h e re s h a ll be p a id i n to t he F u n d, ( a) 7 5% of t h at p a rt of t he q u a r t e r ly t r a n s f er p a y m e nt r e c e i v ed by t he G o v e r n m e nt u n d er t he S o u t h e rn A f r i c an C u s t o ms U n i on A g r e e- m e nt w h i ch is p r o p e r ly a t t r i b u t a b le to i m p o r ts i n to L e s o t ho f or t he w a t er t r a n s f er p a rt of t he P r o j e c t; ( b) a ll r o y a l t i es and e x c e ss w a t er p a y m e n ts p a id to t he G o v e r n m e nt f o r, or in r e l a t i on t o, t he s a le of w a t er f r om t he P r o j e ct u n d er t he T r e a t y; 5 / . .. - 5- ( c) a ny i n t e r e st or o t h er e a r n i n gs a r i s i ng o ut of a ny i n v e s t m e nt of m o n e ys of t he F u n d; ( d) a ny m o n e ys r e c e i v ed f r om t he s a le of t he a s s e ts of t he F u nd or f r om r e p a y m e n ts of l o a ns m a de f r om t he F u n d ;; ( e) a ll d o n a t i o n s, g r a n ts or l o a ns r e c e i v ed f or t he p u r p o s es of t he F u n d; ( f) a ny s u ms a p p r o p r i a t ed to t he F u n d. ( 2) T he r e v e n u es r e f e r r ed to in s u b - r e g u l a t i on ( 1) ( a) s h a l l, e v e ry y e a r, be e s t i m a t ed by t he M i n i s t ry of F i n a n ce and P l a n n i ng in c o n s u l t a t i on w i th t he A u t h o r i ty a nd t he D i r e c t or of C u s t o ms a nd E x c i s e, a nd s h a ll be p a id i n to t he R e v e n ue R e c e i v i ng A c c o u nt r e f e r r ed to in r e g u l a t i on 20 ( 1) ( a ), at t he b e g i n n i ng of e v e ry f i n a n c i al y e a r. 6. M o n e ys s h a ll be p a id f r om t he F u nd f o r, ( a) t he p a y m e nt of s t a ff and o t h er e x p e n s es c o n n e c t ed w i th t he a d m i n i s t r a t i on of t he F u n d; ( b) t he i m p l e m e n t a t i on of p r o j e c ts and c o n s u l t a n c i es a p p r o v ed by t he B o a rd f or t he p u r p o s es of t he F u n d; ( c) t he m a k i ng of i n v e s t m e n ts or t he a c q u i s i t i on of a s s e ts a p p r o v ed by t he B o a rd f or t he p u r p o s es of t he F u n d; ( d) p a y m e n ts to t he C o n s o l i d a t ed F u nd m a de p u r s u a nt to r e g u l a t i o ns 2 3, 24 and 2 5. 7. T he F u nd s h a ll be a d m i n i s t e r ed and m a n a g ed by t he B o a r d. 8. ( 1) T h e re s h a ll be a M a n a g e m e nt B o a rd c o m p r i s i n g, ( a) T he P r i n c i p al S e c r e t a ry f or t he M i n i s t ry r e s p o n s i b le f or P l a n n i n g, w ho s h a ll be c h a i r m a n; 6/... - 6- ( b) t he P r i n c i p al S e c r e t a ry f or t he M i n i s t ry r e s p o n s i b le f or F i n a n c e; ( c) t he G o v e r n or of t he C e n t r al B a nk of L e s o t h o; ( d) t wo p e r s o ns w ho s h a ll be a p p o i n t ed by t he M i n i s t er f r om a m o ng s u i t a b ly q u a l i f i ed c a n d i d a t es f r om t he p r i v a te s e c t o r. ( 2) T he M i n i s t er s h a ll c a u se t he n a m es of t he m e m b e rs of t he B o a rd a p p o i n t ed u n d er s u b - r e g u l a t i on ( 1) ( d) to be p u b l i s h ed in t he G a z e t t e. 1 0. If a m e m b er of t he B o a rd a c q u i r es a ny p e c u n i a ry i n t e r e s t, d i r e ct or i n d i r e c t, in a ny c o n t r a ct or p r o p o s ed c o n t r a ct or in a ny o t h er m a t t er in w h i ch h is p r i v a te i n t e r e s ts c o n f l i ct w i th h is d u t i es as a m e m b er a nd w h i ch is t he s u b j e ct of c o n s i d e r a t i on by t he B o a r d, he s h a l l, as s o on as he b e c o m es a w a re of h is i n t e r e st in t he c o n t r a ct or p r o p o s ed c o n t r a ct or a ny o t h er m a t t e r, d i s c l o se t he f a c ts r e l a t i ng t h e r e to to t he B o a r d. 1 2. T he B o a rd s h a ll be r e s p o n s i b le f o r, ( a) t he e s t a b l i s h m e nt of s u ch p o l i c i e s, s t r a t e g i es a nd p r o c e d u r es as m ay be n e c e s s a ry a nd a p p r o- p r i a te to e n s u re t h at t he o b j e c t i v es of t he F u nd a re a c h i e v ed in an e f f e c t i ve a nd e f f i c i e nt m a n n e r; ( b) t he d e t e r m i n a t i on of t he l i m i ts of t he p o w e rs d e l e g a t ed to t he D e v e l o p m e nt C o m m i t t ee a nd I n v e s t m e nt C o m m i t t ee p u r s u a nt to r e g u l a t i o ns 17 a nd 19 r e s p e c t i v e l y; ( c) t he p r o v i s i on of g e n e r al d i r e c t i v es a nd g u i d e- l i n es to t he E x e c u t i ve S e c r e t a ry a nd t he S e c r e t a r i a t; ( d) t he a p p r o v al o f, ( i) an a n n u al b u d g et f or t he a d m i n i s t r a t i on of t he F u n d; ( i i) s u ch p r o j e c ts as m ay be r e f e r r ed to t he B o a rd by t he D e v e l o p m e nt C o m m i t t e e; 7 / . .. - 7- ( i i i) s u ch i n v e s t m e n ts as m ay be r e f e r r ed to t he B o a rd by t he I n v e s t m e nt C o m m i t t e e; ( e) m o n i t o r i ng t he p e r f o r m a n ce of t he F u n d, i n c l u d i ng t he a c t i v i t i es of t he D e v e l o p m e nt C o m m i t t ee a nd t he I n v e s t m e nt C o m m i t t e e; ( f) t he m a k i ng of a p p o i n t m e n ts to p o s i t i o ns r e f e r r ed to in r e g u l a t i on 1 4 ( 1) ( b) a nd ( c ), a f t er c o n s u l t a t i on w i th t he M i n i s t er r e s p o n s i b le f or t he p u b l ic s e r v i c e. 1 3. ( 1) T he M i n i s t er s h a l l, a f t er c o n s u l t a t i on w i th t he M i n i s t er r e s p o n s i b le f or t he p u b l ic s e r v i c e, by n o t i ce in t he G a z e t t e, a p p o i nt an e x p e r i e n c ed s e n i or p u b l ic o f f i c er to be t he E x e c u t i ve S e c r e t a ry of t he B o a r d. ( 2) T he E x e c u t i ve S e c r e t a ry s h a ll be t he c h i ef e x e c u t i ve a nd a c c o u n t i ng o f f i c er of t he F u n d. ( 3) T he E x e c u t i ve S e c r e t a ry s h a ll a t t e nd m e e t i n gs of t he B o a rd b ut he s h a ll h a ve no p o w er to v o te at s u ch m e e t i n g s. ( 4) T he E x e c u t i ve S e c r e t a ry s h a ll p e r f o rm s u ch d u t i es as a re c o n f e r r ed on h im by or u n d er t h e se r e g u l a t i o n s. 1 4. ( 1) T h e re s h a ll be a S e c r e t a r i at of t he F u nd c o n s i s t- ing o f, ( a) ( b) ( c) t he E x e c u t i ve S e c r e t a r y; t wo o f f i c e rs to be k n o wn r e s p e c t i v e ly as a D e v e l o p m e nt D i r e c t or a nd a F i n a n ce D i r e c t o r; s u ch n u m b er of e m p l o y e es as m ay be s e c o n d ed or o t h e r w i se a p p o i n t ed to t he S e c r e t a r i a t. ( 2) T he F u nd m ay g r a nt p e n s i o n s, g r a t u i t i es or r e t i r i ng b e n e f i ts to t he o f f i c e rs a nd e m p l o y e es of t he S e c r e t a r i at a nd r e q u i re t h em to c o n t r i b u te to a ny p e n s i o n, p r o v i d e nt f u nd or s u p e r a n n u a t i on s c h e m e. 8 / . .. - 8- ( 3) If an o f f i c er h o l d i ng a p e n s i o n a b le o f f i ce in t he p u b l ic s e r v i ce is s e c o n d ed to t he S e c r e t a r i a t, t he p e r i od d u r i ng w h i ch he s e r v es w i th t he S e c r e t a r i at s h a l l, f or t he p u r p o se of c o m p u t a- t i on of t i me a nd a m o u nt of p e n s i on p a y a b le to h im in r e s p e ct of h is s e r v i ce as a p u b l ic o f f i c e r, be d e e m ed to be s e r v i ce in a p e n s i o n a b le o f f i c e. 1 5. ( 1) T he S e c r e t a r i at s h a ll be r e s p o n s i b le f or t he m a n a g e m e nt of t he F u nd in a c c o r d a n ce w i th t he d e c i s i o ns of t he B o a r d. ( 2) W i t h o ut p r e j u d i ce to t he g e n e r a l i ty of s u b- r e g u l a t i on ( 1 ), t he S e c r e t a r i at s h a ll be r e s p o n s i b le f o r, ( a) a r r a n g i ng m e e t i n gs of t he B o a r d; ( b) ( c) ( d) ( e) ( f) ( g) ( h) ( i) p r o v i d i ng b r i e f i ng p a p e r s, r e p o r ts a nd o t h er d o c u m e n t a t i on f or t he B o a rd a nd its c o m m i t t e e s; p r e p a r i ng a nd a p p r a i s i ng d e v e l o p m e nt p r o j e c t s; a c c o u n t i ng f or all t r a n s a c t i o n s; m a n a g i ng i n c o m e s, e x p e n d i t u r es a nd r e s o u r c es of t he f u n d; m a n a g i ng t e c h n i c al a s s i s t a n ce f or t he o p e r a t i o ns of t he F u n d; l i a i s i ng w i th r e l e v a nt d e p a r t m e n ts of t he G o v e r n m e nt and o t h er b o d i es in c o n n e c t i on w i th d e v e l o p m e nt p r o j e c t s; m o n i t o r i ng p r o j e ct and i n v e s t m e nt p e r f o r m a n c e; a nd f a c i l i t a t i ng t he t i m e ly c o m p l e t i on of a n n u al a c c o u n ts a nd e f f e c t i ve a u d i ts of t he F u n d. 1 6. ( 1) T h e re s h a ll be a D e v e l o p m e nt C o m m i t t ee c o m p r i s- i n g, ( a) ( b) t he E x e c u t i ve S e c r e t a r y, w ho s h a ll be c h a i r m a n; t he o f f i c er f or t he t i me b e i ng r e s p o n s i b le f or t he c o n t r ol of t he b u d g et in t he M i n i s t ry of F i n a n ce a nd P l a n n i n g; 9/... - 9- ( c) ( d) t he o f f i c er f or t he t i me b e i ng r e s p o n s i b le f or A id C o o r d i n a t i on in t he M i n i s t ry of F i n a n ce a nd P l a n n i n g; a nd t wo o t h er p e r s o ns w ho s h a ll be a p p o i n t ed by t he B o a r d, w i th t he a p p r o v al of t he M i n i s t er f r om a m o ng s u i t a b ly q u a l i f i ed c a n d i d a t es f r om t he p r i v a te s e c t o r. 1 7. ( 1) T he D e v e l o p m e nt C o m m i t t ee s h a ll c a r ry o u t, in a c c o r d a n ce w i th p o l i c i es a nd g u i d e l i n es i s s u ed by t he B o a r d, s u ch d u t i es as m ay be d e l e g a t ed to it by t he B o a rd w i th r e s p e ct to d e v e l o p m e nt p r o j e c t s. ( 2) W i t h o ut p r e j u d i ce to t he g e n e r a l i ty of s u b- r e g u l a t i on ( 1 ), t he D e v e l o p m e nt C o m m i t t ee s h a ll be r e s p o n s i b le f o r, ( a) ( b) s e l e c t i ng t he p r o j e c ts to be f u n d ed in a c c o r d a n ce w i th t he c r i t e r ia of t he F u nd a nd a u t h o r i z i ng p r o j e ct e x p e n d i t u r e; d e c i d i ng w h en p r o j e ct p r e p a r a t i on f a c i l i- a s s i s t a n ce t i es a nd a s s o c i a t ed t e c h n i c al s h a ll be p r o v i d e d; ( c) m o n i t o r i ng p r o j e ct i m p l e m e n t a t i o n; ( d) ( e) s u b m i t t i ng r o u t i ne r e p o r ts to t he B o a r d; a nd s e e k i ng t he a p p r o v al of t he B o a rd w h e n e v er r e q u i r ed to do s o ." A c l o se e x a m i n a t i on of t he a b o v e - m e n t i o n ed s e c t i o ns of t he F i n a n ce ( L e s o t ho H i g h l a n ds R e v e n ue F u n d) R e g u l a t i o ns 1 9 92 h as l e ft me in no d o u bt t h at t he R e g u l a t i o ns w e re i n t e n d ed f or t he b e st of m o t i v es n a m e ly to e n s u re t h at t he f u nd e s t a b l i s h ed t h e r e in m a i n t a i n ed a nd e n h a n c ed " t he l i v i ng s t a n d a r ds of all t he p e o p le of L e s o t ho " ( S ee s e c t i on 3 t h e r e o f) as w e ll as to " p r o m o te e c o n o m ic d e v e l o p m e n t . ." ( s ee s e c t i on 4 t h e r e o f ). I o b s e r ve at o n ce t h e r e f o re t h at t h e re is no q u e s t i on of d i s c r i m i- n a t i on b a s ed on p o l i t i c al a f f i l i a t i on or at a ll r a i s ed in t h e se R e g u l a t i o n s. 1 0 / . .. - 1 0- I t u rn n ow to d e al w i th t he f a c ts of t he m a t t e r. In p a r a g r a ph 4 of h is f o u n d i ng a f f i d a v it E v a r i s t us R e t s ' e l i s i t s oe S e k h o n y a na a c k n o w l e d g es t he f a ct t h at "in t e r ms of L e g al N o t i ce N o. 91 of 1 9 9 2, F i r st R e s p o n d e nt is c h a r g ed w i th t he a d m i n i s t r a t i on of t he L e s o t ho H i g h l a n ds R e v e n ue F u n d. F i r st R e s p o n d e nt is f u r t h er c h a r g ed w i th r e c e i pt of m o n i es f r om s p e c i f i ed s o u r c es a nd d i s b u r s i ng s u ch m o n i es f or s p e c i f i ed p u r p o s e s ." T he a p p l i c a n t 's c o m p l a i n ts c an b e st be h i g h l i g h t ed by r e f e r r i ng to p a r a g r a p hs 5 - 7 of t he F o u n d i ng A f f i d a v it of E v a r i s t us R e t s ' e l i s i t s oe S e k h o n y a na to t he f o l l o w i ng e f f e c t: " 5. S i n ce A p r il 1 9 9 5, F i r st R e s p o n d e nt h as b e en w h at it r e f e rs to as d e v e l o p m e nt p r o j e c ts in C o n s t i t u e n c i e s. T he f u n ds a re h a n d ed o v er to P a r l i a m e n t a r i a ns w ho a re m e m b e rs of t he r u l i ng B a s u t o l a nd C o n g r e ss P a r ty o n ly i r r e s- p e c t i ve of w h e t h er or n ot s o me of t h em h a ve C o n s t i t u e n c e s. S e c o nd R e s p o n d e nt is a S e n a t or a nd h as n ot b e en e l e c t ed f r om a ny C o n s t i t u e n c y. F i r st R e s p o n d e nt h as a p p r o v ed f u n d i ng f or Q e me C o n s t i t u e n cy to be e x e c u t ed by S e c o nd R e s p o n d e n t. A c o py of t he l e t t er of a p p r o v al is h e r e to a t t a c h ed a nd m a r k ed a n n e x u re " B N P 2 ". 6. F i r st R e s p o n d e nt f u r t h er i s s u ed c i r c u l ar l e t t e rs to a ll P a r l i a m e n t a r i a ns w h om it r e f e r r ed to as P r i n c i p al E x e c u t i v es of P r o j e c ts in C o n s t i t u e n c i e s. T he c i r c u l ar l e t t e rs laid d o wn c o n d i t i o ns g o v e r n- ing t he i m p l e m e n t a t i on of d e v e l o p m e nt p r o j e c ts in l e t t e rs C o n s t i t u e n c i e s. a re h e r e to a t t a c h ed t o g e t h er w i th f a ir t r a n s l a- C o p i es of t he c i r c u l ar t i o ns t h e r e to a nd a re m a r k ed a n n e x u r es " B N P 3" a nd " B N P 4" r e s p e c t i v e l y. 1 1 / . .. - 1 1- 7. F i r st R e s p o n d e n t 's d e c i s i on to a p p r o ve a nd a u t h o r i se f u n d i ng of C o n s t i t u e n cy d e v e l o p- m e nt p r o j e c ts is i l l e g a l, u l t ra v i r e s, s e c t a r i an a nd b i a s e d, d i s c r i m i n a t o ry a nd u n c o n s t i t u t i o n al in t h a t: 7.1 t he d e l i m i t a t i on of L e s o t ho i n to C o n s t i t u e n c i es is p u r e ly f or p u r p o s es of e l e c t i o ns o n l y. A ny f i n a n c i al a s s i s t a n ce to a g r o up of p e r s o ns on t he b a s is of t h e ir C o n s t i t u e n cy a f f i l i a t i on is u l t i m a t e ly d e s i g n ed to i n f l u e n ce t h e ir v o t i ng d e c i s i on in e l e c t i o n s. In t he c i r c u m s t a n c es of t he p r e s e nt c a s e, F i r st R e s p o n d e nt is u s i ng p u b l ic f u n ds f or C o n s t i t u e n cy p r o j e c ts w h o se a l l e g ed p r i n c i p al e x e c u t i v es a re Parliamentarians of t he r u l i ng B a s u t o l a nd C o n g r e ss P a r t y. F i r st R e s p o n d e nt is e f f e c t i v e ly l e n d i ng f i n a n c i al a s s i s t a n ce to t he s a id p a r t y. 7 .2 C o m m u n i ty p r o j e c ts in r u r al a r e as a re s t a t u t o r i ly t he r e s p o n s i b i l i ty of V i l l a ge a nd W a rd D e v e l o p m e nt C o u n c i l s. In u r b an a r e as t h ey a re t he r e s p o n s i b i l i ty of m u n i c i p al C o u n c i l s. T h e re is no l e g i s l a- t i on m a k i ng p r o v i s i on f or t he e s t a b l i s h- m e nt of C o n s t i t u e n cy D e v e l o p m e nt C o m m i t t e es s i n ce t h e se a re p u r e ly o r g a n i s a t i o n al s t r u c t u r es of i n d i v i d u al p o l i t i c al p a r t i e s. F i r st R e s p o n d e nt is u s i ng p u b l ic f u n ds f or p u r p o s es of p o l i t i c al p a r ty s t r u c t u r es a nd b l a t a n t ly b y - p a s s es s t a t u t o ry b o d i es c h a r g ed w i th c o m m u n i ty p r o j e c ts h a v i ng no l i n k a g es w i th p a r ty p o l i t i c al s t r u c t u r e s. 7.3 P a r l i a m e n t a r i a ns a re f i n a n c i al w a t c h d o gs o v er t he E x e c u t i ve b r a n ch of G o v e r n m e n t. T he P u b l ic A c c o u n ts C o m m i t t ee r e p o r ts d i r e c t ly to P a r l i a m e n t. M e m b e rs of P a r l i a m e nt h a ve no 1 2 / . .. - 1 2- e x e c u t i ve f u n c t i o ns to d i s b u r se p u b l ic f u n ds p e r s o n a l l y, e v en at t h e ir r e s p e c t i ve C o n s t i- t u e n c i e s. T h e ir f u n c t i on of d i s b u r s e m e n ts of p u b l ic f u n ds is f o r m a l ly t h r o u gh P a r l i a- m e n t a ry a p p r o p r i a t i o ns o n l y. T he c u r r e nt d e c i s i on by F i r st R e s p o n d e nt to a p p r o ve a nd f u nd C o n s t i t u e n cy p r o j e c ts e x e c u t ed by P a r l i a- m e n t a r i a ns a l l o ws m e m b e rs of P a r l i a m e nt to t a ke a d v a n t a ge of t h e ir P a r l i a m e n t a ry p o s i t i o ns to a ct in a m a n n er b e n e f i t t i ng t h e ir C o n s t i- t u e n c i es in a p o l i t i c a l ly s e c t a r i an m a n n e r. 7.4 T he p r o j e c ts f u n d ed by F i r st R e s p o n d e nt a re n ot c o n s i s t e nt w i th t he P u b l ic S e c t or I n v e s t m e nt P r o g r a m me as c u r r e n t ly p r e p a r ed by t he M i n i s t ry of P l a n n i n g. T he c o m m u n i t i es i d e n t i fy t he p r o j e c t s. F i r st R e s p o n d e nt is s u p p o s ed to f u nd p a rt of t he P u b l ic S e c t or I n v e s t m e nt P r o g r a m me a nd n ot s i m i l a r, a n a l o g o us n or a d d i t i o n al p r o g r a m m es as t h is v i o l a t es t he r e g u l a t i o ns of t he F u n d. 7.5 S e v e n t y - f i ve p er c e nt ( 7 5 %) of t he q u a r t e r ly t r a n s f er p a y m e nt r e c e i v ed by t he G o v e r n m e nt of L e s o t ho u n d er t he C u s t o ms U n i on A g r e e m e nt a nd w h i ch is p r o p e r ly a t t r i b u t a b le to i m p o r ts i n to L e s o t ho f or w a t er t r a n s f er p a rt of t he p r o j e ct a c c r u es to t he L e s o t ho H i g h l a n ds R e v e n ue F u n d. A ll t he C u s t o ms U n i on A g r e e m e nt r e v e n ue a c c r u es to t he C o n s o l i d a t ed R e v e n ue F u n d. A ll w i t h d r a w a ls f r om t he C o n s o l i d a t ed R e v e n ue F u nd a re by m e a ns of P a r l i a m e n t a ry a p p r o p r i a t i o n. T h e re h as b e en no P a r l i a m e n t a ry a p p r o p r i a t i on of t he s e v e n t y - f i ve p er c e nt ( 7 5 %) of t he q u a r t e r ly t r a n s f er p a y m e nt d e r i v ed f r om t he C u s t o ms U n i on A g r e e m e n t. W i t h o ut s u ch a p p r o p r i a t i on t he m o n i es r e c e i v ed by t he L e s o t ho H i g h l a n ds R e v e n ue F u nd h a ve b e en i l l e g a l ly a nd u n c o n s t i t u t i o n a l ly d r a wn 1 3 / . .. - 1 3- f r om t he C o n s o l i d a t ed R e v e n ue A c c o u nt a nd a re n ot d i s b u r s a b le f or a ny p u r p o s e. 7 .6 D e s p i te t he m o n i es d i s b u r s ed by F i r st R e s p o n d e nt b e i ng p u b l ic f u n d s, t h e re a re no a c c o u n t a b i l i ty p r o c e d u r es a nd m e c h a n i sm p ut in p l a ce to e n s u re t h at t h ey a re p r o p e r ly d i s b u r s e d. G o v e r n- m e nt t e n d er p r o c e d u r es a re n ot e v en f o l l o w ed w h e re o r d i n a r i ly t h is w o u ld be t he c a s e. A ll in a ll p u b l ic f u n ds a re b e i ng t h r o wn i n to t he a ir f or t he b e n e f it of t he B a s u t o l a nd C o n g r e ss P a r ty in C o n s t i t u e n c i e s. T h is p a r ty d r a ws b e n e f i ts f or i ts p u r p o s es u n d er t he h a nd of G o v e r n m e nt a nd t he F i r st R e s p o n d e n t. T h is is p r e j u d i c i al a nd h a r m f ul to o t h er p o l i t i c al p a r t i es i n c l u d i ng in p a r t i c u l ar t he A p p l i c a nt P a r t y. T h is is u n f a ir s i n ce A p p l i c a nt P a r ty h as no a c c e ss to p u b l ic f u n d s ." It s e e ms to me t h at t he m a in t h r u st of a p p l i c a n t 's c a se f r om t he a f o r e g o i ng a nd p a r t i c u l a r ly t he l a st p a r a g r a ph q u o t ed a b o ve i s, in a n u t s h e l l, t h at p u b l ic f u n ds a re b e i ng m i s u s ed a nd t h at " t h is is p r e j u d i c i al a nd h a r m f ul to o t h er p o l i t i c al p a r t i es i n c l u d i ng in p a r t i c u l ar t he A p p l i c a nt P a r t y ." I am s a t i s f i ed t h e r e f o re t h at t he a p p l i c a nt is in f a ct s e e k i ng to p l ay t he r o le of a g e n e r al w a t c h d og o v er t he e x e c u t i ve a nd t h us to v i n d i c a te t he p u b l ic i n t e r e s t. I f i nd t h at t h e re is m e r it in M r. M a k h e t h e 's s u b m i s s i on on b e h a lf of t he R e s p o n d e n ts t h at t he a p p l i c a nt is in f a ct i n d i r e c t ly s e e k i ng f or t he r i g ht to g o v e rn t he c o u n t r y. L a w r e n ce B a x t e r: A d m i n i s t r a t i ve L aw at p 6 47 h as t h is to s a y :- " J u st as a c o u rt m i g ht d e c l i ne to r u le on a p o l i cy i s s ue b e c a u se it c o n s i d e rs t h is to be a m a t t er f or r e c o g n i ze t he l e g i s l a t u r e, so it m i g ht d e c l i ne to 14/ - 1 4- t he s t a n d i ng of an i n d i v i d u al w ho s e e ks to v i n d i c a te t he p u b l ic i n t e r e st b e c a u se it c o n s i d e rs i ts r o le to be o ne of s e t t l i ng d i s p u t es b e t w e en i n d i v i d u a ls w h o se p r i v a te i n t e r e s ts h a ve b e en h a r m e d, n ot o ne of a c t i ng as a g e n e r al w a t c h d og o v er t he e x e c u t i v e ." T h e se w o r ds a re a p p o s i te to t he c a se b e f o re m e. In a ll t he c i r c u m s t a n c es of t h is c a se I am s a t i s f i ed t h at t h is a p p l i c a t i on r u ns c o u n t er to t he t e st l a id d o wn in L e s o t ho H u m an R i g h ts A l e rt G r o up v T he M i n i s t er of Justice & Human Rights & 2 others (supra) namely that the right of a p r i v a te p e r s on or a s s o c i a t i on of p e r s o ns is l i m i t ed to p r o s e c u t i ng a c t i o ns in h is or i ts o wn i n t e r e st a nd he or it h as no t i t le to i n s t i t u te t h em in t he i n t e r e s ts of t he p u b l i c. N ow t he t e s t, as I c o n c e i ve it to b e, is n ot m e r e ly w h e t h er a p e r s on s e e k i ng to i n s t i t u te an a c t i on m u st h a ve a p e r s o n al i n t e r e st b ut w h e t h er s u ch i n t e r e st is d i r e ct a nd s u b s t a n t i al as w e ll as b e i ng c a p a b le of l e g al e n f o r c e m e n t. In P . E. B o s m an T r a n s p o rt W o r ks C o m m i t t ee a nd o t h e rs v P i et B o s m an T r a n s p o rt ( P t y) L t d. 1 9 80 ( 4) S . A. 8 01 ( T) at 8 04 B E l o ff J. p u ts t he p r i n c i p le s u c c i n c t ly in t he f o l l o w i ng t e r m s :- " It is w e ll s e t t l ed t h a t, in o r d er to j u s t i fy i ts p a r t i c i p a t i on in a s u it s u ch as t he p r e s e n t, a p a r ty s u ch as s e c o nd a p p l i c a nt h as to s h ow t h at it h as a d i r e ct a nd s u b s t a n t i al i n t e r e st in t he s u b j e c t - m a t t er a nd o u t c o me of t he a p p l i c a t i o n ." 1 5 / . .. - 1 5- W i th r e s p e ct I e n t i r e ly a g r e e. I o b s e r ve t h at in t he c a se of L e s o t ho C o n g r e ss of F r ee T r a de U n i o ns v R a m o c h e la a nd o t h e rs C of A ( C i v) N o .2 of 1 9 85 A a r on J . A. h ad t h is to s a y :- " A p p e l l a n t 's i n t e r e s ts m ay be a f f e c t ed by a d e c i s i on on t h e se m a t t e r s, b ut it h as no l e g al r i g h ts c a p a b le of e n f o r c e m e nt a r i s i ng t h e r e f r o m ." L i k e w i se I f i nd t h at t he a p p l i c a nt h as no l e g al r i g h ts c a p a b le of e n f o r c e m e nt in t he m a t t er b e f o re m e. A p p l i c a n t 's i n t e r e st is no m o re t h an t h at of a ny o t h er m e m b er of t he p u b l i c. T he s u b j e ct m a t t er in t he p r e s e nt a p p l i c a t i on is t he r i g ht to a d m i n i s t er t he F u nd e s t a b l i s h ed u n d er L e g al N o t i ce N o. 91 of 1 9 92 as a f o r e s a i d. I am s a t i s f i ed on t he f a c ts b e f o re me t h at t he A p p l i c a nt h as no d i r e ct a nd s u b s t a n t i al i n t e r e st c a p a b le of l e g al e n f o r c e m e nt in t he m a t t e r. I e m p h a s i se t h at A p p l i c a n t 's i n t e r e st is no m o re t h an t h at of a ny m e m b er of t he p u b l i c. In f a ct A p p l i c a nt h as n ot e v en a l l e g ed or s h o wn t h at s u ch a r i g ht e x i s t s. I am n ot s u r p r i s ed b e c a u se t he a p p l i c a n t 's r e al r e m e dy l i es in t he p o l i t i c al a r e na a nd n ot b e f o re c o u r ts of l aw in a m a t t er of t h is n a t u r e. It w o u ld be a d i f f e r e nt t h i ng if t he c o u rt w as d e a l i ng w i th t he q u e s t i on of t he l i b e r ty of t he s u b j e ct w h i ch is n ot t he c a se b e f o re m e. A g a in I o b s e r ve t h at t h is is n ot a c a se in w h i ch t he a p p l i c a nt is r e l y i ng on a s t a t u te w h i ch c o n f e rs r i g h ts on a ny m e m b er of t he p u b l ic to b r i ng t he m a t t er to c o u rt f or a ny t r a n s g r e s s i o ns t h e r e o f. F or t h at r e a s on t he a p p l i c a nt c a n n ot 1 6 / . .. - 1 6- h a ve t he b e n e f it of t he d o c t r i ne l a id d o wn in P a tz v G r e e ne & C o. 1 9 07 T . S. 4 27 n a m e ly t h at " w h e re l e g i s l a t i on h as b e en e n a c t ed in t he i n t e r e s ts of a p a r t i c u l ar i n d i v i d u al or c l a ss of p e r s o n s, t he c o u r ts w i ll p r e s u me t h at a v i o l a t i on of t he l e g i s l a t i on w i ll a u t o m a t i c a l ly a f f e ct t he i n t e r e s ts of s u ch i n d i v i d u al or c l a ss a nd a n y o ne f a l l i ng w i t h in t he p r o t e c t ed c a t e g o ry w i ll h a ve s t a n d i ng to c h a l l e n ge a c t i on t a k en in v i o l a t i on of t he l e g i s l a t i on w i t h o ut h a v i ng to e s t a b l i sh t h at h is i n t e r e s ts a re in f a ct a f f e c t e d ." L a w r e n ce B a x t e r: A d m i n i s t r a t i ve L aw p 6 59 - 6 6 0. As e a r l i er s t a t ed s e c t i on 3 of t he F i n a n ce ( L e s o t ho H i g h l a n ds R e v e n ue F u n d) N o. 91 of 1 9 92 m a k es it a b u n d a n t ly c l e ar t h at t he p u r p o se of t he F u nd w as n ot to i n d i v i d u a l i se or d i s c r i- m i n a te in a ny w ay b ut " to m a i n t a in a nd e n h a n c e, on a s u s t a i n- a b le b a s i s, t he l i v i ng s t a n d a r ds of all t he p e o p le of L e s o t h o ." In a ll t he c i r c u m s t a n c es of t he c a se b e f o re me t he A p p l i c a n t, in my v i e w, h as n ot d i s c h a r g ed t he o n us of p r o v i ng t h at it h ad l o c us s t a n di to b r i ng t h is a p p l i c a t i on w h i ch is a c c o r d i n g ly d i s m i s s ed w i th c o s t s. B e c a u se of t he c o n c l u s i on to w h i ch I h a ve c o me on t he q u e s t i on of l o c us s t a n di it is s t r i c t ly u n n e c e s s a ry f or me to d e al w i th t he m e r i ts of t he c a s e. B ut s i n ce I h a ve h e a rd f u ll a r g u m e nt t h e r e in as w e ll I m ay h o w e v er s t a te t h at t he a p p l i c a t i on f u r t h er f a l ls to be d i s m i s s ed w i th c o s ts on t he p r i n c i p le l a id d o wn in P l a s c o n - E v a ns P a i n ts v V an R i e b e e ck 1 9 84 ( 3) S . A. 6 23 at 6 34 n a m e ly t h at " t he c o u rt is e n t i t l ed to a s s u me t he c o r r e c t n e ss of t he v e r s i on of t he R e s p o n d e nt w h e re t h e re is a 1 7 / . .. - 1 7- c o n f l i ct of f a ct in m o t i on p r o c e e d i n gs d e s i g n ed to s e c u re f i n al r e l i e f" p er M a h o m ed P. in N a t i o n al U n i v e r s i ty of L e s o t ho S t u d e n ts U n i on v N a t i o n al U n i v e r s i ty of L e s o t ho a nd o t h e rs C of A ( C i v) N o . 10 of 1 9 90 ( u n r e p o r t e d) at p 1 9. W i th r e s p e ct I a d o pt t he s a me a p p r o a ch in t h is m a t t e r. I o b s e r ve t h at t he a l l e g a t i o ns in t he f o u n d i ng a f f i d a v it of E v a r i s t us R e t s ' e l i s i t s oe S e k h o n y a na w h i ch a re d e n i ed r e m a in u n s u b s t a n t i a t e d. I a t t a ch d ue w e i g ht to p a r a g r a ph of t he a n s w e r i ng a f f i d a v it of M o t l a t si M a t e k a ne in w h i ch he d e p o s es in p a rt " It w as t he c l e ar i n s t r u c t i on of t he B o a rd t h at no c h e q u es s h o u ld be i s s u ed to m e m b e rs of P a r l i a- m e n t" w ho a c c o r d i ng to t he d e p o n e nt w e re m e re f a c i l i t a t o rs in t he i m p l e m e n t a t i on of t he p r o j e c ts by t he p r o j e ct c o m m i t t e e s" - s ee p a r a g r a ph 15 of t he s a id a n s w e r i ng a f f i d a v i t. I f i nd t h at t he d e p o n e nt M o t l a t si M a t e k a ne is s u p p o r t ed by t he r e p o rt of the World Bank A n n e x u re " M M B" p a r t i c u l a r ly p a ge 5 t h e r e of to t he f o l l o w i ng e f f e c t: " M e m b e rs of P a r l i a m e nt c u r r e n t ly f u n c t i on as p r o m o t e rs a nd m o n i t o rs of t he F u n d 's a c t i v i t i es in t h e ir r e s p e c t i ve c o n s t i t u e n c i e s. T h r o u gh t h e ir r i g ht of a c c e ss to p u b l ic i n f o r m a t i o n, t h ey f u l f i ll an e s s e n t i al c a t a l y t ic f u n c t i o n, b o th in f a c i l i t a t i ng t he t o w - w ay f l ow of i n f o r m a t i on b e t w e en t he c e n t r al o p e r a t i o ns of t he D e v e l o p m e nt F u nd a nd c o m m u n i t i e s, a nd in s i g n a l i ng a nd h e l p i ng to r e s o l ve p r o b l e ms in p r o m pt s e r v i ce d e l i v e ry to c o m m u n i t i es by G o v e r n m e nt a g e n c i e s, d o n o r s, N G Os a nd p r i v a te c o n t r a c t o r s. 1 8 / . .. - 1 8- The current role of MPs is entirely appropriate. Whereas instances may have occurred in which MPs have handled the finances disbursed under the Development Fund operations, the mission did not obtain concrete proof of such trans- actions. Moreover, the Government's policy on this issue is clear: MPs role is to monitor the operations of the Fund in their contituencies, not to take part in any of its financial operations." W e ll n o t h i ng c an be c l e a r e r. In t he c i r c u m s t a n c es I a s s u me t he c o r r e c t n e ss of t he v e r s i on of t he R e s p o n d e nt in t h is m a t t e r. In t he r e s u lt t h is a p p l i c a t i on is d i s m i s s ed w i th c o s t s. M . M. R A M O D I B E DI A c t i ng J u d ge F or t he A p p l i c a nt : M r. N t l h o ki F or t he R e s p o n d e nt : M r. T. M a k h e t he