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{\title IN THE HIGH COURT OF FIJI (AT SUVA)}{\author Amelia Rasovo}{\operator blake_r}{\creatim\yr2004\mo8\dy30\hr14\min55}{\revtim\yr2004\mo8\dy31\hr9\min4}{\version3}{\edmins3}{\nofpages4}{\nofwords1032}{\nofchars5888}{\*\company Judicial Department}
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\qc \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5774928 \fs20\lang1033\langfe5129\cgrid\langnp1033\langfenp5129 {\b\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 IN THE HIGH COURT OF FIJI}{
\b\fs24\lang2057\langfe5129\langnp2057\insrsid5774928\charrsid5774928 
\par }{\b\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 (AT SUVA)
\par }\pard \ql \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5774928 {\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 
\par }\pard \qc \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5774928 {\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 JUDICIAL REVIEW NO. HBJ 0006 OF 2002S
\par }\pard \ql \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5774928 {\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 
\par }\pard \qc \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5774928 {\b\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 THE STATE
\par }\pard \ql \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5774928 {\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 
\par }\pard \qc \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5774928 {\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 v.
\par }\pard \ql \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5774928 {\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 
\par }\pard \qc \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5774928 {\b\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 COMMISSIONER OF PRISONS
\par }{\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 Respondent
\par }\pard \ql \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5774928 {\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 
\par }\pard \qc \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5774928 {\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 ex parte}{\fs24\lang2057\langfe5129\langnp2057\insrsid15340123 
\par }\pard \ql \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5774928 {\fs24\lang2057\langfe5129\langnp2057\insrsid5774928\charrsid5774928 
\par }\pard \qc \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5774928 {\b\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 ROKOTAMANA VITINAQAILEVU
\par }{\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 Applicant
\par }\pard \ql \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5774928 {\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 
\par I.V. Tuberi for the Applicant
\par S. Sharma for the Respondent
\par 
\par }\pard \qc \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5774928 {\b\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 JUDGMENT
\par }\pard \ql \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5774928 {\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 
\par These proceedings which by consent go forward under the provisions of O 53 r 3(9) concern the operation of the Prisons Insurance and Medical Scheme.
\par 
\par According to an affida
vit filed by the Respondent (the Commissioner) this scheme originates in a policy directive issued by the Government in 1989 which required that all members of the disciplined forces, including the Prisons Service be members of a health and medical insura
nce scheme.
\par 
\par Pursuant to this directive the Commissioner established an insurance committee.}{\fs24\lang2057\langfe5129\langnp2057\insrsid5774928  }{\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 
This committee included senior representatives from all divisions of the Prisons Service.
\par 
\par As appears from both the Applicant\rquote s and the Commissioner\rquote s affidavits the Committee explored various options.}{\fs24\lang2057\langfe5129\langnp2057\insrsid5774928  }{\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 
It appears that at one stage prison officers were part of the general Public Service group insurance scheme but they later opted out of the scheme and went \'93in house\'94.}{\fs24\lang2057\langfe5129\langnp2057\insrsid5774928  }{
\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 In July 2001 the committee decided to go back to a private insurance company, Fiji Care Limited.
\par 
\par The results of these changes included a fairly large undistributed surplus from the former scheme and a substantial increase in the premiums deducted from the prison officers\rquote  wages.}{\fs24\lang2057\langfe5129\langnp2057\insrsid5774928  }{
\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 Some members of the Prison Officers Association including the Applicant were unhappy that the \'93in house\'94 scheme had not been properly audited.}{
\fs24\lang2057\langfe5129\langnp2057\insrsid5774928  }{\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 They were also unhappy with the increased premiums and their compulsory deductions.
\par 
\par On 1 March 2002 the Applicant initiated these proceedings.}{\fs24\lang2057\langfe5129\langnp2057\insrsid5774928  }{\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 
As appears from paragraphs 1 (a), (b) and (c) of the O 53 statement the Applicant sought}{\fs24\lang2057\langfe5129\langnp2057\insrsid5774928  }{\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 
(a) an order to quash the compulsory deductions (b) an order for an account of the \'93in house\'94 scheme}{\fs24\lang2057\langfe5129\langnp2057\insrsid5774928  }{\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 
and (c) an order for the distribution of the surplus.}{\fs24\lang2057\langfe5129\langnp2057\insrsid5774928  }{\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 
On 22 August Mr. Tuberi advised me that following discussions between the parties only the first order was being pursued.
\par 
\par Mr. Tuberi filed an excellent written submission.}{\fs24\lang2057\langfe5129\langnp2057\insrsid5774928  }{\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 Mr. Sharma, who had taken over the case at short notice also 
made helpful oral submissions.}{\fs24\lang2057\langfe5129\langnp2057\insrsid5774928  }{\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 It seems to me that there are only three questions to be considered.
\par 
\par The first is locus.}{\fs24\lang2057\langfe5129\langnp2057\insrsid5774928  }{\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 
Mr. Sharma suggested that the Applicant who is the Chairman of the Prison Officers Association derived his powers, which do not include the power to initiate legal proceedings, from the Prison Officers\rquote  Association Order (Cap 86 \endash 
 Section 43 \endash  Subs 3).}{\fs24\lang2057\langfe5129\langnp2057\insrsid5774928  }{\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 The Commissioner in his affidavit expressed the view that the Applicant \'93
cannot claim to act and represent the Association or the members of the Association without the concurrence of the Central Committee established by Section 5 of the Order.
\par 
\par Under RHC O 53 r 3 (5):
\par 
\par }\pard \ql \li720\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin720\itap0\pararsid5774928 {\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 \'93
the Court shall not grant leave unless it considers that the Applicant has sufficient interest in the matter to which the application relates.\'94
\par }\pard \ql \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5774928 {\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 
\par In }{\fs24\ul\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 R v. G.L.C. ex parte Blackburn}{\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928  [1967] 1 WLR 550 Denning MR said:
\par 
\par }\pard \ql \li720\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin720\itap0\pararsid5774928 {\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 \'93
I regard it as a matter of high constitutional principle that if there is good ground for supposing that a government department or a public authority is transg
ressing the law, or is about to transgress it, in a way which offends or injures thousands of Her Majesty\rquote 
s subjects, then any one of those offended or injured can draw it to the attention of the courts of law and seek to have the law enforced and the courts in their discretion can grant whatever remedy is appropriate.\'94
\par }\pard \ql \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5774928 {\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 
\par The central complaint being made in this case by the Applicant is that the compulsory deduction of insurance premiums from prison officers}{\fs24\lang2057\langfe5129\langnp2057\insrsid5774928 '}{
\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928  wages violates section 40 (1) of the Constitution which provides that:
\par 
\par }\pard \ql \li720\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin720\itap0\pararsid5774928 {\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 \'93
Every person has the right not to be deprived of property by the State otherwise than in accordance with a law.\'94
\par }\pard \ql \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5774928 {\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 
\par The Applicant\rquote s claim is precisely a claim of the kind envisaged by Lord Denning and I am satisfied that the Applicant has standing to prosecute it.
\par 
\par The next question is whether the compulsory deduction of insurance premiums from wages is a compulsory deprivation of property.}{\fs24\lang2057\langfe5129\langnp2057\insrsid5774928  }{\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 
Although \'93property\'94 is not defined in the Constitution, Section 2 of the Interpretation Act (Cap 7) defines it to include money and I therefore hold that it include wages.
\par 
\par The final question is whether there is in existence any law authorising the compulsory deduction of insurance premiums from prison officers\rquote  wages.}{\fs24\lang2057\langfe5129\langnp2057\insrsid5774928  }{
\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 Mr. Sharma frankly conceded that the only provision upon which he was able to rely was Section 8 of the Prison Act (Cap 86).This section provides that:
\par 
\par }\pard \ql \li720\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin720\itap0\pararsid5774928 {\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 \'93(1)-}{\fs24\lang2057\langfe5129\langnp2057\insrsid5774928  }{
\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 \tab the (Commissioner) shall, subject to the orders and directions of the 
\par }\pard \ql \li1440\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin1440\itap0\pararsid5774928 {\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 Minist
er, have administrative command and direction of all prisoners and officers of the Prisons Service \'85..\'94}{\fs24\lang2057\langfe5129\langnp2057\insrsid5774928  }{\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 and
\par }\pard \ql \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5774928 {\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 
\par }\pard \ql \fi-720\li1440\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin1440\itap0\pararsid5774928 {\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 \'93(2)\tab 
the (Commissioner) may, subject to the provision of this Act, from time to time make orders for observance by all officers of the Prisons Service.\'94
\par }\pard \ql \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5774928 {\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 
\par Mr. Sharma did not suggest that the Government\rquote s 1989 policy directive that all prison officers be insured was capable of being an order or direction within Section 8 (1) having the status of law and I am satisfied that it was not.
\par 
\par The remaining question is whether Section 8 (2) can legitimise an order by the Commissioner that insurance premiums be deducted.}{\fs24\lang2057\langfe5129\langnp2057\insrsid5774928  }{\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 
I am also satisfied that it can not.}{\fs24\lang2057\langfe5129\langnp2057\insrsid5774928  }{\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 
It is a fundamental and well settled rule of law that a charge upon the subject must be imposed by clear and unambiguous language (see }{\fs24\ul\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 Russell v. Scott}{
\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928  [1948] AC 422 and }{\fs24\ul\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 D\rquote Avigdor-Goldsmid v. IRC}{
\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928  [1953] AC 347).
\par 
\par There is nothing in the Prisons Act authorising compulsory deductions from wages except under Sections 37 and 38.}{\fs24\lang2057\langfe5129\langnp2057\insrsid5774928  }{\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 
These sections specifically authorise deductions in connection with disciplinary offences and loss or damage to equipment.}{\fs24\lang2057\langfe5129\langnp2057\insrsid5774928  }{\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 
There is no section dealing with insurance premiums.
\par 
\par In my opinion the 1989 Government policy directive is no substitute for a law specifically authorising deductions of insurance premiums.}{\fs24\lang2057\langfe5129\langnp2057\insrsid5774928  }{
\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 Doubtless it could be made}{\fs24\lang2057\langfe5129\langnp2057\insrsid5774928  }{\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 
a condition of recruitment to the service that premiums be deducted but such a condition could not be made to operate retrospectively.}{\fs24\lang2057\langfe5129\langnp2057\insrsid5774928  }{
\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 The fact that some officers apparently consented to the deductions does not regularise them.
\par 
\par In my opinion the compulsory deductions of insurance premiums from prison officers\rquote  wages is a breach of Section 40 (1) of the Constitution and is accordingly unauthorised by law.}{\fs24\lang2057\langfe5129\langnp2057\insrsid5774928  }{
\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 I grant the first order sought.
\par 
\par Before leaving the matter I do not think it inappropriate to express the view that insurance of disciplined services personnel is clearly highly desirable.}{\fs24\lang2057\langfe5129\langnp2057\insrsid5774928  }{
\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 A group scheme is obviously the best way of securing cover.}{\fs24\lang2057\langfe5129\langnp2057\insrsid5774928  }{\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 
I do not doubt that the Commissioner and the insurance committee were only trying to do something which was obviously sensible.}{\fs24\lang2057\langfe5129\langnp2057\insrsid5774928  }{\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 
It is a pity that the Government did not provide the legal means for them to do so.
\par 
\par }\pard \qc \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5774928 {\b\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 M.D. Scott
\par Judge
\par }\pard \ql \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5774928 {\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 
\par 29 August}{\fs24\lang2057\langfe5129\langnp2057\insrsid5774928  }{\fs24\lang2057\langfe5129\langnp2057\insrsid15340123\charrsid5774928 2002
\par }}