Makanga v Kenyatta University (Constitutional Petition E373 of 2021) [2023] KEHC 1604 (KLR) (Constitutional and Human Rights) (10 March 2023) (Ruling)
Neutral citation:
[2023] KEHC 1604 (KLR)
Republic of Kenya
Constitutional Petition E373 of 2021
AC Mrima, J
March 10, 2023
Between
Joshua Makara Makanga
Petitioner
and
Kenyatta University
Respondent
Ruling
Introduction and Background
1.This ruling relates to the Notice of Preliminary objection dated 22nd March, 2022.
2.The objection was filed by the Respondent and was tailored as follows: -a.This honourable Court has no jurisdiction to entertain, hear or determine the Petition.b.From the facts pleaded the Petition is patently clear that the dispute herein is in fact and n substance a dispute about the alleged violation of the privacy rights of a data subject.c.In the premises, the issues raised in the petition ought to be dealt with in the dispute resolution mechanisms mandatorily prescribed under section 8(1),(f), (9)(1)(a), 56 and 57 of the Data Protection Act Number 24 of 2019.d.Under the aforesaid legal provision, the dispute herein ought to be investigated, heard and determined by the Office of the Data Commissioner established under the Act.e.This petition is therefore premature, mischievous, vexatious and an abuse of Court process.f.This Court therefore lacks jurisdiction to entertain, hear or determine the issues raised in the Petition.
3.Parties filed written submissions on the objection. One of the issues raised by the Petitioner in opposing the objection was that objection was not a proper one in law.
Analysis:
4.Having carefully considered the objection and the submissions, the following issues are for determination: -i.Whether the Preliminary Objection is proper in law.ii.Depending on (i) above, whether the Preliminary Objection is merited.
5.I will begin with the first issue.
Whether the Preliminary Objection is proper in law:
6.As a general principle of law, preliminary objection is considered only if it raises pure points of law. In instances where it contains factual issues requiring the calling of evidence, it fails the test and in such scenarios is dismissed.
7.In Mukisa Biscuit Manufacturers Ltd -vs- Westend Distributors Ltd, (1969) E.A 696 pg. 700 the Court observed as follows: -
8.Similarly, in Civil Suit No. 85 of 1992, Oraro -vs- Mbaja [2005] 1 KLR 141, Ojwang J, as he then was, added his voice to the finding in Mukisa Biscuit -vs- West End Distributors case (supra) regarding the nature of preliminary objections when he observed as follows: -
9.The High Court in John Musakali vs. Speaker County of Bungoma & 4 others (2015) eKLR held as follows: -
10.In assessing the propriety of a preliminary objection, the Court in Omondi -vs- National Bank of Kenya Ltd & Others {2001} KLR 579; [2001] 1 EA 177, made the following important remarks: -
11.The objection in this matter challenges the jurisdiction of this Court on the basis of the exhaustion doctrine.
12.As to whether a jurisdictional point is a pure point of law, the Supreme Court of Kenya in Petition No. 7 of 2013 Mary Wambui Munene -vs- Peter Gichuki Kingara and Six Others, [2014] eKLR, held that ‘jurisdiction is a pure question of law’. The Court also observed that a challenge on jurisdiction ought to be resolved on a priority basis.
13.Earlier on, the Apex Court in Constitutional Application No. 2 of 2011, In the Matter of Interim Independent Electoral Commission (2011) eKLR addressed the question regarding the source of a Court’s jurisdiction as follows: -
14.The foregoing position was buttressed the same Court in Samuel Kamau Macharia & Another vs. Kenya Commercial Bank Limited & Others (2012) eKLR, when the Learned Judges observed as follows: -
15.The foregoing, hence, settles the fact that jurisdiction is a pure question of law.
16.It is, therefore, the finding of this Court that the objection raises a pure point of law capable of disposing of the entire Petition if successful. The objection passes the proprietary test and is for consideration.
17.With such a finding, I will now consider the second issue.
Whether the Preliminary Objection is merited:
18.The parties were sharply divided on whether the objection is merited.
19.The Respondent posited that the issues raised in the Petition ought to be dealt with in the dispute resolution mechanisms mandatorily provided for under Section 8(1)(f), 9(1)(a), 56 and 57 of the Data Protection Act, No. 24 of 2019 and as such this Court’s jurisdiction is improperly invoked. Several decisions were referred to in support of the position.
20.On its part, the Petitioner was of the contrary position. He contended that since the Petition related to the infringement of his rights and fundamental freedom, then it is only the High Court with the requisite jurisdiction to hear and determine the claim. The Petitioner also referred to some decisions in furtherance of the position.
21.As the objection now rests on whether the exhaustion doctrine is applicable in this case, it is imperative to have a brief look at the said doctrine.
22.This Court recently discussed the exhaustion doctrine in doctrine of exhaustion was comprehensively dealt with by a 5-Judge Bench in Mombasa High Court Constitutional Petition No. 159 of 2018 consolidated with Constitutional Petition No. 201 of 2019 William Odhiambo Ramogi & 3 others v Attorney General & 4 others; Muslims for Human Rights & 2 others (Interested Parties) (2020) eKLR. The Court stated as follows:52.The question of exhaustion of administrative remedies arises when a litigant, aggrieved by an agency's action, seeks redress from a Court of law on an action without pursuing available remedies before the agency itself. The exhaustion doctrine serves the purpose of ensuring that there is a postponement of judicial consideration of matters to ensure that a party is, first of all, diligent in the protection of his own interest within the mechanisms in place for resolution outside the Courts. This encourages alternative dispute resolution mechanisms in line with Article 159 of the Constitution and was aptly elucidated by the High Court in R vs. Independent Electoral and Boundaries Commission (I.E.B.C) Ex Parte National Super Alliance (NASA) Kenya and 6 others [2017] eKLR, where the Court opined thus:
23.The Court also dealt with the exceptions to the doctrine of exhaustion. It expressed itself as follows: -
24.The above decision was appealed against by the Respondents. The Court of Appeal in upholding the decision and in dismissing the appeal in Mombasa Civil Appeal No. 166 of 2018 Kenya Ports Authority v William Odhiambo Ramogi & 8 others [2019] eKLR held as follows: -
25.Further, in Civil Appeal 158 of 2017, Fleur Investments Limited -vs- Commissioner of Domestic Taxes & another [2018] eKLR, the Learned Judges of the Court of Appeal relied on an earlier decision in Speaker of National Assembly vs Njenga Karume (1990-1994) EA 546 to assume jurisdiction by bypassing the mechanism under Income Tax Tribunal. They observed as follows: -
26.Courts have in many occasions reiterated the position that where there are alternative avenues legally provided for in dispute resolutions, there should be postponement of judicial consideration of such disputes until after the available avenues are fully adhered to or unless it is adequately demonstrated that the matter under consideration falls within the exception to the doctrine of exhaustion.
27.Returning to the matter at hand, the Petition seeks the following prayers: -
28.This Court has carefully considered the parties’ positions alongside the manner in which the Petition was framed. It has as well considered the provisions of the Data Protection Act, No. 24 of 2019 (hereinafter referred to as ‘the Data Act’).
29.The Preamble of the Data Act states that it is an Act of Parliament to give effect to Article 31(c) and (d) of the Constitution; to establish the Office of the Data Protection Commissioner; to make provision for the regulation of the processing of personal data; to provide for the rights of data subjects and obligations of data controllers and processors; and for connected purposes.
30.Article 31(c) and (d) of the Constitution provides as follows: -
31.The Data Act further provides for the rights of a data subject, the enforcement of rights of data subjects, investigation of complaints by data subjects, compensation for breach of the rights of data subjects, the registration of data controllers and data processors, the principles and obligations of personal data protection, processing of sensitive personal data, among many other aspects of personal data.
32.Section 3 of the Data Act provides for the objectives as follows: -
33.Section 5 of the Data Act establishes the Office of the Data Protection Commissioner which is a body corporate with perpetual succession and a common seal and has the power to conduct business in its corporate name. I will hereinafter refer to the said office as ‘the Data Commissioner’’ or ‘the Commissioner’.
34.One of the many functions of the Data Commissioner is provided for in Section 8(1)(f) as ‘to receive and investigate any complaint by any person on infringements of the rights under this Act’.
35.The Commissioner further has powers to conduct investigations on its own initiative, or on the basis of a complaint made by a data subject or a third party. That is provided for in Section 9(1)(a) of the Data Act.
36.In discharging its functions and exercising its powers, the Commissioner is authorized under Section 59 of the Data Act to seek the assistance of such person or authority as it deems fit and as is reasonably necessary to assist the Data Commissioner in the discharge of the functions.
37.Section 65 of the Data Act gives the Data Commissioner the power to determine the compensation payable to a data subjectwho suffers damage by reason of a contravention of any requirement of the Data Act and in instances where the Commissioner finds as much.
38.With a view to protect the integrity of the processes under the Data Act, the statute provides for enforcement notices under Section 58 in respect of those who failto comply with any provision of the Data Act.
39.Under Section 64 of the Data Act, any appeal from the decision of the Commissioner lies to the High Court.
40.A close scrutiny of the Data Act reveals a deliberate design to ensure that all claims arising from allegations of infringement of Article 31(c) and (d) of the Constitution are wholly dealt with by the Commissioner as the first port of call. Such position can only be overruled by a party demonstrating any of the exceptions to the doctrine of exhaustion in a matter.
41.Returning to the case at hand, the Petitioners’ complaint is the alleged publication of the Petitioner’s images and/or photographs by the Respondent in its social media accounts without his consent. The Petitioner alleged breach of his Article 31 rights under the Constitution. He then sought for inter alia some declarations as well as compensatory damages.
42.This Court ascribes to the position that in a case where Parliament donated powers to an entity like the Data Commissioner to determine if one’s privacy rights under Article 31(c) and (d) of the Commissioner are infringed, then it means as much; that the Commissioner has such power determine whether privacy rights as provided for in the Bill of Rights has been denied, violated, infringed or threatened. However, the Commissioner lacks the jurisdiction to interpret the Constitution.
43.The reason for the foregoing holding is simple. The members of the Office of the Data Commissioner, as an entity and individually so, are public officers and Article 10 calls upon them to infuse the national values and principles of governance while undertaking their duties. Article 3 obligates every person to respect, uphold and defend the Constitution. Therefore, the Commissioner must be in a position to uphold the Constitution, and in doing so, to be able to determine whether a given set of circumstances reveal denial, violation, infringement or threat to the privacy rights in the Bill of Rights.
44.The above duty is to be distinguished from the duty to interpret the Constitution. Determining whether a given set of circumstances reveal denial, violation, infringement or threat to a right or fundamental freedom in the Bill of Rights is just that simple. Conversely, interpretation of the Constitution is a serious judicial function. While interpreting the Constitution, the High Court is called upon to apply its legal mind to determine the applicability and extent thereof of a constitutional provision to a set of facts. In arriving at such an interpretation, the High Court is supposed to consider all the applicable principles in constitutional interpretation. (See the Supreme Court in In the Matter of Interim Independent Electoral Commission [2011] eKLR). The High Court may also look at comparative jurisprudence from other jurisdictions on the subject. Such a determination yields to a binding legal principle unless overturned by a Court with superior jurisdiction.
45.Unlike the High Court, Tribunals and other quasi-judicial bodies, including the Data Commissioner, do not make the law. They can, however, apply themselves to a given set of facts and determine denial, violation, infringement or threat to a right or fundamental freedom in the Bill of Rights.
46.There is, therefore, a defined distinction between determining the denial, violation, infringement or threat to the privacy rights in the Bill of Rights and interpreting the Constitution. Whereas the former is not exclusively a judicial function, the latter is. The jurisdiction, therefore, to interpret the Constitution is the exclusive duty reserved to the High Court vide Article 165(3)(d) of the Constitution.
47.In the instant matter, the Data Commissioner has the jurisdiction to determine whether the Petitioner’s privacy rights in the Bill of Rights were denied, violated, infringed or threatened. The Commissioner has further powers to order appropriate compensation in the event of proof of the infringement.
48.The Data Act, therefore, wholly provides for the dispute at hand as well as the remedies in the event the dispute is successful.
49.In such a case, it was incumbent upon the Petitioner to demonstrate to the Court any of the exceptions to the doctrine of exhaustion. The Petitioner did not do so.
50.The upshot is that the doctrine of exhaustion applies in this matter and bears a complete bar to the further exercise of jurisdiction by this Court.
51.As a result of the foregoing, the following orders do hereby issue:a.The Notice of Preliminary Objection dated 22nd March, 2022 is merited.b.The Petition dated 15th September, 2021 is hereby struck out with costs.
Orders accordingly.
DELIVERED, DATED AND SIGNED AT KITALE THIS 10TH DAY OF MARCH, 2023.A. C. MRIMAJUDGERuling No. 1 virtually delivered in the presence of:Miss. Ndegwa, Learned Counsel for the Petitioner.Mr. Thuo, Learned Counsel for the Respondent.