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{\title IN THE HIGH COURT OF FIJI (AT SUVA)}{\author Amelia Rasovo}{\operator blake_r}{\creatim\yr2004\mo8\dy30\hr13\min54}{\revtim\yr2004\mo8\dy31\hr10\min31}{\version3}{\edmins2}{\nofpages3}{\nofwords816}{\nofchars4656}{\*\company Judicial Department}
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{\pntxtb (}{\pntxta )}}\pard\plain \qc \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid9438522 \fs20\lang1033\langfe5129\cgrid\langnp1033\langfenp5129 {\b\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 
IN THE HIGH COURT OF FIJI}{\b\fs24\lang2057\langfe5129\langnp2057\insrsid9438522\charrsid9438522 
\par }{\b\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 (AT SUVA)
\par }\pard \ql \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid9438522 {\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 
\par }\pard \qc \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid9438522 {\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 CIVIL ACTION NO. HBC 306 OF 2001S
\par }\pard \ql \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid9438522 {\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 
\par }\pard \qc \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid9438522 {\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 Between:
\par }\pard \ql \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid9438522 {\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 
\par }\pard \qc \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid9438522 {\b\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 JOHN ALI
\par }{\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 (aka Asgar Ali)
\par and
\par }{\b\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 SURESH CHARAN
\par }{\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 Plaintiffs
\par }\pard \ql \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid9438522 {\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 
\par }\pard \qc \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid9438522 {\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 and
\par }\pard \ql \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid9438522 {\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 
\par }\pard \qc \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid9438522 {\b\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 LOCAL GOVERNMENT (NASINU)
\par (INTERIM) COMMITTEE
\par }{\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 1st Defendant
\par }\pard \ql \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid9438522 {\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 
\par }\pard \qc \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid9438522 {\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 and
\par }\pard \ql \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid9438522 {\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 
\par }\pard \qc \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid9438522 {\b\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 AZMAT KHAN
\par }{\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 2nd Defendant
\par 
\par and
\par }{\b\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 
\par MINISTER OF LOCAL GOVERNMENT,
\par HOUSING AND THE ENVIRONMENT
\par }{\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 3rd Defendant
\par }\pard \ql \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid9438522 {\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 
\par R.P. Singh for the Plaintiffs
\par S. Sharma for the Defendants
\par 
\par }\pard \qc \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid9438522 {\b\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 DECISION
\par }\pard \ql \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid9438522 {\b\fs24\ul\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 
\par }{\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 This is an application by the Defendants brought under the provisions of RHC O18 r 18.}{\fs24\lang2057\langfe5129\langnp2057\insrsid9438522  }{
\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 The central issue in this case is the proper interpretation to be given to Section 5 (2) of the Local Government Act (Cap. 125) and the question to be answered is wheth
er the Section gives power to persons appointed by the Minister to make and levy a general rate.
\par 
\par In December 1999 the then Minister for Local Government declared Nasinu to be a town.}{\fs24\lang2057\langfe5129\langnp2057\insrsid9438522  }{\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 
He was entitled to make this declaration under Section 5 (1) of the Act.}{\fs24\lang2057\langfe5129\langnp2057\insrsid9438522  }{\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 
The same month an interim committee was appointed pursuant to Section 5 (2) for a period of 6 months commencing 1 January 2000.
\par 
\par In May 2000}{\fs24\lang2057\langfe5129\langnp2057\insrsid9438522  there was an attempted coup d\rquote \'e9}{\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 tat followed by general upheaval.}{
\fs24\lang2057\langfe5129\langnp2057\insrsid9438522  }{\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 Eventually there was a General Election.}{\fs24\lang2057\langfe5129\langnp2057\insrsid9438522  }{
\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 
I was told from the bar that for these reasons the Office of the Supervisor of Elections has not been able to arrange elections for the new Council as is required by Sections 9, 10, 11, 12, 13 and 14 of the Act.}{
\fs24\lang2057\langfe5129\langnp2057\insrsid9438522  }{\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 The local government of Nasinu has remained
 in the hands of the interim committee whose terms of appointment have several times been extended for a further 6 months by order of the Minister purporting to exercise powers conferred on him by the proviso to Section 5 (2).
\par 
\par On 1 May 2001 the Minister made the Local Government (Nasinu) (Interim Committee) (Amendment) Regulations 2001 (see Exhibit 7 to the supporting affidavit of Bhaksharan Nair).}{\fs24\lang2057\langfe5129\langnp2057\insrsid9438522  }{
\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 The Defendants\rquote  case is that these regulations made as:
\par 
\par }\pard \ql \li720\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin720\itap0\pararsid9438522 {\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 \'93necessary or expedient as an interim measure to pr
ovide for the first election of the Council \'85 and for the government of the town }{\fs24\ul\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 including the provision of services}{
\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522  until a council is duly appointed under the provisions of (the) Act\'94 (emphasis added)
\par }\pard \ql \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid9438522 {\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 
\par specifically extend to Part IX of the Act and that therefore the Committee is entitled to levy a general rate in the town.
\par 
\par Mr. Sharma suggested that the Committee would be unable to \'93provide services\'94 unless those services was paid for.}{\fs24\lang2057\langfe5129\langnp2057\insrsid9438522  }{\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 
The only way they could reasonably be paid for was by way of the levy of a rate.}{\fs24\lang2057\langfe5129\langnp2057\insrsid9438522  }{\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 
Mr. Sharma told me (as I myself know) that the condition of the roads and verges in Nasinu leaves much to be desired.}{\fs24\lang2057\langfe5129\langnp2057\insrsid9438522  }{\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 
There is an urgent need for the whole area to be tidied up.}{\fs24\lang2057\langfe5129\langnp2057\insrsid9438522  }{\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 Mr. Sharma however told me that the residents were refusing to 
pay the rate fixed by the committee and meanwhile the election of a council (and several other elections also delayed) could not be held until later in the year.
\par 
\par In answer, Mr. Singh suggested that the committee should be funded directly by the taxpayer until a council can be elected.}{\fs24\lang2057\langfe5129\langnp2057\insrsid9438522  }{\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 
He described the present position as undemocratic.
\par 
\par When construing a statute it is useful to bear in mind that:
\par 
\par }\pard \ql \li720\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin720\itap0\pararsid9438522 {\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 \'93
if the choice is between two interpretations, the narrower of which will fail to achieve the manifest purpose
 of the legislation we should avoid a construction which would reduce the legislation to futility and should rather accept the bolder construction based on the view that Parliament would legislate only for the purpose of bringing about an effective result
.\'94
\par }\pard \ql \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid9438522 {\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 
\par (}{\fs24\ul\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 Nokes v. Doncaster Amalgamated Collieries}{\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522  [1940] AC 1014).
\par 
\par Adopting such an approach would tend to favour the Defendants since an interim committee without funds can hardly \'93provide services\'94.
\par 
\par There is however another important consideration which is that statutes which impose pecuniary burdens must be construed strictly.}{\fs24\lang2057\langfe5129\langnp2057\insrsid9438522  }{\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 
It is a well settled rule of law that charges upon the citizen must be imposed by clear and unambiguous language (}{\fs24\ul\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 Russell v. Scott}{
\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 
 [1948] AC 422) and that the language of the statute must not be strained in order to tax a transaction which, had the legislature thought of it, would have been covered by appropriate words (}{
\fs24\ul\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 IRC v. Wolfson}{\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522  [1949] 1 All ER 865).
\par 
\par As I see it, the scheme of the Act insofar as it extends to the creation of new municipalities and the election of councils is quite clear.}{\fs24\lang2057\langfe5129\langnp2057\insrsid9438522  }{
\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 The principal function of the interim committee is to help to oversee the election of the first council for the new town.}{\fs24\lang2057\langfe5129\langnp2057\insrsid9438522  }{
\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 The election is supposed to take place not more than 6 months after the committee is appointed.}{\fs24\lang2057\langfe5129\langnp2057\insrsid9438522  }{
\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 How the committee is to be funded is not laid out in the Act but the Act does specifically deal with the way in which rates are to be levied.
\par 
\par Under Section 58 of the Act:
\par 
\par }\pard \ql \li720\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin720\itap0\pararsid9438522 {\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 \'93}{\fs24\ul\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 
A Council}{\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522  may from time to time make and levy a general rate \'85..\'94 (emphasis added).
\par }\pard \ql \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid9438522 {\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 
\par \'93A Council\'94 means:
\par 
\par }\pard \ql \li720\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin720\itap0\pararsid9438522 {\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 \'93the Council of a city, a town or a district\'94 (Section 2 of the Act).}{
\fs24\lang2057\langfe5129\langnp2057\insrsid9438522  }{\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 
\par }\pard \ql \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid9438522 {\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 
\par \'93The Council\'94, as defined does not include an interim committee appointed under Section 5 (2).}{\fs24\lang2057\langfe5129\langnp2057\insrsid9438522  }{\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 
It is trite that an Act may not be altered by a Regulation.
\par 
\par While there is clearly an urgent need for rates to be levied in Nasinu I am satisfied that the inability of the Office of the Supervisor of Elections to arrange for the elec
tion of a council to take place is not a valid or acceptable reason for straining the meaning of the Act in order to justify imposing on the residents of Nasinu a rate which has not been properly levied by a duly elected council.
\par 
\par The application fails and is dismissed.
\par 
\par }\pard \qc \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid9438522 {\b\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 M.D. Scott
\par Judge
\par }\pard \ql \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid9438522 {\fs24\lang2057\langfe5129\langnp2057\insrsid7359605\charrsid9438522 
\par 23 January 2002
\par }}