Odongo v Clerk, Nakuru County Assembly & 5 others (Civil Appeal (Application) E001 of 2023) [2023] KECA 1554 (KLR) (15 December 2023) (Ruling)
Neutral citation:
[2023] KECA 1554 (KLR)
Republic of Kenya
Civil Appeal (Application) E001 of 2023
MSA Makhandia, FA Ochieng & WK Korir, JJA
December 15, 2023
Between
Kenneth Odongo
Applicant
and
The Clerk, Nakuru County Assembly
1st Respondent
The Speaker, Nakuru County Assembly
2nd Respondent
County Assembly Of Nakuru
3rd Respondent
Nakuru County Government Public Service Board
4th Respondent
The County Government Of Nakuru
5th Respondent
Governor, Nakuru County Government
6th Respondent
(Being an application for certification and leave to appeal to the Supreme Court of Kenya from the Judgment of the Court of Appeal at Nakuru (Sichale, Ochieng & Achode, JJ. A) dated 14th April, 2023 in Civil Appeal No. E136 of 2022
Civil Appeal E136 & E137 of 2022 (Consolidated),
Petition E16 of 2022
)
Ruling
1.The application before us is dated 28th April, 2023. The application is brought under Article 163(4) of the Constitution, rules 24 and 26 of the Supreme Court Rules and rule 40 of the Court of Appeal Rules. The applicant prays for orders that:a)There be a stay of proceedings and the dismissal of Nakuru ELRC Petition No. E017 of 2022; and Nakuru ELRC Petition No. E001 of 2023 pending the hearing and determination of this application and the intended appeal.b).Certification of Nakuru CACA No. 136 of 2022 as being of great public interest and grant leave to the applicant to appeal to the Supreme Court.c.Costs abide the outcome of the intended appeal.
2.The applicant’s affidavit supports the application, which is based on the following grounds:
3.The 1st, 2nd, and 3rd respondents stated the following in their replying affidavit, which was sworn by Jane Njoki Waweru, the clerk for the 3rd respondent’s clerk:
4.In response, the 4th, 5th, and 6th respondents relied on the replying affidavit sworn by Dr. Samuel Mwangi Mwaura, the acting County Secretary of the 5th respondent. He stated as follows:
5.At the hearing of the application, Ms. Mwaniki, learned counsel appeared for the applicant whereas Mr. Karanja, learned counsel appeared for the 1st, 2nd, and 3rd respondents and Mr. Jayalo appeared for the 4th, 5th, and 6th respondents. Counsel relied on their respective written submissions, which they briefly highlighted.
6.Ms. Mwaniki submitted that the intended appeal raises a matter of general public importance, and it is on this ground that the applicant seeks leave to appeal to the Supreme Court. Counsel faulted this court for holding that the ELRC lacked jurisdiction where there was no signed contract at the time of recruitment. Counsel contended that the ELRC had jurisdiction to determine issues arising during recruitment, and any constitutional matters arising therefrom.
7.Counsel pointed out thatrules 2 and 4 of the Constitution of Kenya (Protection of Rights and Fundamental Freedoms) Practice and Procedure Rules stipulate that a public litigant may move the ELRC. This matter transcends the applicant’s interest.
8.The applicant submitted that he instituted Nakuru ELRC Petition No. E017 of 2022 for purposes of safeguarding public interest about the recruitment and intended employment of chief officers. The matter affects a wide array of employment matters, especially those involving County Governments and other public bodies.
9.The applicant pointed out that the main issue to be determined in the intended appeal is the interpretation of Article 162(2) of the Constitution vis-à-vis Section 12(1) of the Employment and Labour Relations Court Act. The aim is for the Supreme Court to determine whether recruitments, especially where employment contracts had not been entered into, are labour related and whether the ELRC has jurisdiction to determine the same.
10.The applicant submitted further that the Supreme Court will be called upon to examine the import of Section 45 of the County Governments Act and the decisions made thereunder; as well as Section 4 as read with Section 2 of the Constitution (Protection of Rights and Fundamental Freedoms Practice and Procedure) Rules in the context of Article 22 of the Constitution. The applicant was of the view that employment matters are of great public importance, as they affect every sector of the commerce industry.
11.The applicant pointed out that although this was the first case to be determined by this Court on the jurisdiction of the ELRC; Trusted Society of Human Rights Alliance v Nakuru Water and Sanitation Services Company & Another [2013] eKLR, Evans Ladtema Muswahili v Vihiga County Public Service Board & 2 others [2021] eKLR and Okiya Omtatah Okoiti v Attorney General [2022] KEELRC 2 are some of the decisions where the court has held that the ELRC has jurisdiction on matters recruitment and selection.
12.Mr. Karanja was of the view that the matter was not for certification, but rather the interpretation of Section 12(2) of the Employment and Labour Relations Act, regarding the persons who can move the ELRC. Counsel pointed out that there was no challenge to the constitutionality of Section 12, and any person could move the High Court with public interest litigation. No law has been enacted by parliament to give the ELRC jurisdiction to handle public interest litigation. Counsel submitted that there was no uncertainty, as there is no different decision by this court, constituted differently.
13.The 1st, 2nd, and 3rd respondents relied on the cases of Hermanus Phillipus Steyn v Giovanni Gnecchi-Ruscone [2013] eKLR, Malcolm Bell v Daniel Toroitich Arap Moi & Another [2013] eKLR and Goldenlime International Limited v Bluesea Shopping Mall Limited & 3 others [2021] KESC 2 in submitting that the applicant had failed to demonstrate that he had satisfied the threshold for certification of the intended appeal as one of general public importance. That notwithstanding, they pointed out that the dispute had since been overtaken by events and the chief officers are in office.
14.They also submitted that the applicant had failed to satisfy the two limbs as required by rule 5(2)(b) of the Court of Appeal Rules. They pointed out that this is an omnibus application, incapable of being adjudicated by this Court.
15.Mr. Jayalo reiterated the submissions by Mr. Karanja.
16.The 4th, 5th, and 6th respondents submitted that the doctrine of functus officio bars this Court from entertaining any application for stay. They pointed out that any consideration for orders of stay would amount to the court re-examining the matter on merit, yet it has already determined it conclusively through the impugned judgment. They relied on the cases of Telkom Kenya Limited v John Ochanda [2014] eKLR, and Dickson Muricho Muriuki v Timothy Kagondu Muriuki & 6 others [2013] eKLR in support of this submission.
17.On whether the applicant has demonstrated general public importance or not, the respondents cited the case of Hermanus Phillipus Steyn v Giovanni Gnecchi-Ruscone, (supra), which laid down the principles that a court ought to consider when determining whether a matter is of general public importance.They were of the view that the issue of conflicting jurisprudence concerning the jurisdiction of the ELRC was a matter of general public importance. However, they submitted that this case did not meet the guidelines set out by the Supreme Court. They were of the view that the applicant was self-seeking and that this matter did not in any way transcend the parties’ application for leave nor did it affect the public. They pointed out that the questions raised demonstrated that the intended appeal is aimed at the appointment conducted by the 3rd, 4th, and 6th respondents, which is a matter within the purview of an employment dispute and does not affect the general public in any manner as to invoke the appellate jurisdiction of the Supreme Court.
18.The said respondents were of the view that the applicant had failed to demonstrate the precedents he claims are contradictory. The applicant should specify and demonstrate the elements of general public importance; and that merely stating that there is contradicting jurisprudence does not suffice. Citing the cases of Benson Makori Makworo v Nairobi Metropolitan Services & 2 others [2022] eKLR, Okiya Omtatah Okoiti & 2 Others v Attorney General & 4 others [2020] eKLR and Malcolm Bell v Daniel Toroitich Arap Moi & Another (supra), the reiterated that the Supreme Court had rendered itself with finality concerning the jurisdiction of the ELRC in the case of Republic v Karisa Chengo, (supra). They urged that the application be dismissed with costs.
19.In her rejoinder, Ms. Mwaniki stated that Section 12 of the Employment and Labour Relations Act cites matters that can be referred to the ELRC. However, that list is not exhaustive, as it uses the word ‘including’. CACA 136 of 2022 is the first case before this court. However, there are several inconsistent decisions before the High Court and the ELRC.
20.We have carefully perused the application, the affidavits by both parties, submissions by counsel, the authorities cited, and the law. The issue for determination is whether or not the application before us is merited.
21.Article 163(4) of the Constitution succinctly states that appeals shall lie to the Supreme Court from this Court as of right in any case involving the interpretation or application of the Constitution and in any matter where it is certified that the appeal involves a matter of general public importance. The article provides the following:
22.The issue before us is to determine whether indeed there is a matter of general public importance that is raised and disclosed. In the case of Hermanus Phillipus Steyn v Giovanni Gnecchi- Ruscone, (supra), the Supreme Court stated thus:
23.It is common ground that the applicant seeks to have this matter certified as one of general public importance. The Supreme Court in the case of Hermanus Phillipus Steyn v Giovanni Gnecchi- Ruscone, (supra), laid down the following principles to be what constitutes matters of general public importance:
24.What then constitutes a matter of general public importance?The court in Hermanus Phillipus Steyn v Giovanni Gnecchi- Ruscone, (supra), held that:
25.The Supreme Court further defined what a matter of general public importance is, in the same case as follows:
26.The applicant has moved this court that a matter of general public importance is involved. In a bid to advance his case, the applicant has identified six questions in his application, to demonstrate that this matter is of general public importance. The applicant places more emphasis on the jurisdiction of the ELRC to entertain disputes relating to the recruitment, selection, nomination, and appointment of employees.
27.This court held that the ELRC did not have jurisdiction to deal with the matter, as no contract of employment had been entered into between the County Government and the nominees, and the dispute was not an employment and labour dispute in nature; there was no employer-employee relationship between the applicant and any of the respondents, and therefore the applicant lacked the locus to institute the proceedings; and that the 6th respondent did not act in isolation but together with the 4th respondent, hence Sections 77 and 87 of the County Government Act were applicable, and the petition was premature for failing to exhaust the mechanisms provided therein. From the findings of the impugned judgment, we are satisfied that the applicant has not set out in any form why these elements of settled law require consideration by the Supreme Court and how they impact on third parties or other cases.
28.It is common ground that this is the first decision by this court touching on the jurisdiction of the ELRC about selection, recruitment, and appointments. The applicant did not cite any of the contradictory decisions referred to in his grounds and affidavit in support of the application. It is not enough for the applicant to merely state that there are contradictory decisions. We have also not found any express pronouncements by the judgments of the High Court and the ELRC addressing this issue.
29.It is not enough for the applicant to state that the Supreme Court is to interpret Article 162(2) of the Constitution vis-à-vis section 12(1) of the Employment and Labour Relations Court Act, and the import of section 45 of the County Governments Act, and section 4 as read with section 2 of the Constitution (Protection of Rights and Fundamental Freedoms Practice and Procedure) Rules in the context of article 22 of the Constitution, in determining that all employment matters are of general importance. In the case of Gatirau Peter Munya vs. Dickson Mwenda Kithinji & 2 Others [2014] eKLR the court held:
30.In this instance, the applicant has failed to demonstrate that the court’s reasoning took a trajectory that warrants constitutional interpretation. Be that as it may, this court considered all the issues raised by the respondents on appeal and found no merit in them. It is trite that all litigation must sooner than later, come to an end and its conclusion must have a finality. A matter cannot be reopened before the Supreme Court simply because a litigant is of the view that the decision should have been different or a certain weight ought to have been given to a particular piece of evidence. To our minds, that is exactly what the applicant is trying to do.
31.Having carefully considered the grounds in support of certification, we cannot deduce any substantial issue of law to be determined or any matter that affects the general public interest.
32.As for the prayer seeking a stay of proceedings and stay of dismissal in Nakuru ELRC Petition No. E017 of 2022 and Nakuru ELRC Petition No. E001 of 2023 of this Court’s judgment pending the hearing of the intended appeal to the Supreme Court, the prayer is not available, as this court is functus officio and lacks the jurisdiction to grant such orders.
33.In the result, we find that the application lacks merit and it is dismissed. Each party is to bear their costs.
Orders accordingly.
DATED AND DELIVERED AT NAKURU THIS 15TH DAY OF DECEMBER, 2023.................................ASIKE-MAKHANDIAJUDGE OF APPEAL................................F. OCHIENGJUDGE OF APPEAL................................W. KORIR JUDGE OF APPEALI certify that this is a true copy of the original.SignedDEPUTY REGISTRAR