Permanent Secretary, Ministry of Foreign Affairs & Prime Minister Patrick Manning (Appellants) Feroza Ramjohn (Respondent) Prime Minister Patrick Manning and The Public Service Commission (Appellants) Ganga Persad Kissoon (Respondent)
| Jurisdiction | UK Non-devolved |
| Judge | LORD BROWN |
| Judgment Date | 18 July 2011 |
| Neutral Citation | [2011] UKPC 20 |
| Date | 18 July 2011 |
| Docket Number | Appeal Nos 0038 of 2010 0057 of 2010 |
| Court | Privy Council |
[2011] UKPC 20
Lord Phillips
Lord Brown
Lord Mance
Lord Kerr
Lord Dyson
Privy Council
Appellant
James Dingemans QC
Mrs Linda Khan
(Instructed by Charles Russell LLP)
Respondent
Sir Fenton Ramsahoye SC
Jodie Blackstock
Cindy Bhagwandeen
(Instructed by Bankside Law Ltd)
Appellant
Peter Knox QC
(Instructed by Charles Russell LLP)
Respondent
Sir Fenton Ramsahoye SC
Jodie Blackstock
Cindy Bhagwandeen
(Instructed by Bankside Law Ltd)
Section 121 of the Constitution of Trinidad and Tobago confers on the Prime Minister certain powers with regard to appointments to particular public offices. Having heard appeals by the Prime Minister in separate but successive cases against two judgments of the Court of Appeal (each given on 8 July 2009) with regard to the exercise of these powers, the Board has decided to deal with them both in a single judgment.
Before indicating anything more of the circumstances of the respective appeals, it is convenient at once to set out the material parts of section 121, provisions to be read in the context of Trinidad and Tobago having a Public Service Commission (PSC) with wide general powers of appointment, discipline and the like in connection with public offices. Section 121(3)-(6) provides:
"(3) Before the Public Service Commission makes any appointment to an office to which this section applies, it shall consult the Prime Minister.
(4) A person shall not be appointed to an office to which subsection (3) applies if the Prime Minister signifies to the Public Service Commission his objection to the appointment of that person to that office.
(5) Subject to subsections (6) and (7), subsection (3) applies to the offices of Permanent Secretary, Chief Technical Officer, Director of Personnel Administration, to a head of a department of government, to the chief professional adviser in a Ministry of Government and to the office of Deputy to any of these offices.
(6) Power to make appointments on transfer to the following offices shall vest in the Prime Minister:
(a) any office of Permanent Secretary from one such office to another such office carrying the same salary;
(b) any office the holder of which is required to reside outside Trinidad and Tobago for the proper discharge of his functions, and such offices in the Ministry Of External Affairs as may from time to time be designated by the Prime Minister after consultation with the Public Service Commission."
The appeal to which Feroza Ramjohn is respondent (the first appeal), concerns the Prime Minister's exercise of his section 121(6)(b) power; the appeal to which Ganga Persad Kissoon is respondent (the second appeal) concerns the Prime Minister's exercise of his section 121(4) power (which for convenience we shall call the power of veto). Put shortly, the Court of Appeal in the first appeal (Warner and Mendonca JJA, Kangaloo JA dissenting) held that the Prime Minister had acted unfairly in appointing Ms Ramjohn to an office which required her to reside outside Trinidad and Tobago (a posting to the High Commission in London) and then, before she had assumed the duties of the office, revoking the appointment. The Court of Appeal in the second appeal (Archie CJ, Warner and Mendonca JJA) held that the Prime Minister had acted contrary to the rules of natural justice in vetoing Mr Kissoon's appointment, proposed by the PSC, as Commissioner of State Lands in the Ministry of Agriculture, Land and Marine Resources ("a head of a department of government" within the meaning of section 121(5)). In each case the Court of Appeal gave no relief other than a declaration of unfairness/ breach of natural justice and an order for costs. Principally it is the Prime Minister (represented in the first appeal by Mr Dingemans QC, in the second appeal by Mr Knox QC) who now appeals to the Board against the declarations in each case although in the first appeal the Permanent Secretary of the Ministry of Foreign Affairs also appeals to seek a costs order against Ms Ramjohn and in the second appeal Mr Kissoon also appeals to seek further relief against the Prime Minister and the PSC.
With those introductory paragraphs the Board now turn to the facts of each case in a little detail.
The first appeal
Ms Ramjohn entered the public service in 1971, joining the Ministry of Foreign Affairs (MFA) in May 1984. From 1987 to 1989 she was the Officer in Charge of the Registry in the Consulate General of Trinidad and Tobago in New York and from 1989 to 1995 she was an Accounts Officer in Trinidad and Tobago's Permanent Mission to the United Nations in New York. After returning from New York she was then stationed continuously at the MFA in Trinidad, being promoted in January 2002 to the office of Foreign Executive Officer II.
On 24 May 2004 the Prime Minister signed an Instrument of Transfer in respect of Ms Ramjohn in the following terms:
"In exercise of the power vested in me under Section 121(6) of the Constitution of the Republic of Trinidad and Tobago, I do hereby appoint you, Ms Feroza Ramjohn, Foreign Service Executive Officer II, to the High Commission of the Republic of Trinidad and Tobago, London, United Kingdom, with effect from the date of assumption by you of the duties of the post."
On 27 May 2004 Ms Ramjohn was told by Mr Patrick Edwards, the Permanent Secretary to the MFA, that she was being transferred to London to replace Mr Bisson Budhai in the High Commission's Accounts Division. Following a criminal investigation, Mr Budhai was being returned home having been charged with using diplomatic pouches to transport cocaine between Trinidad and Tobago and London.
On 28 May 2004 Ms Ramjohn received the Permanent Secretary's letter dated 26 May confirming her posting and enclosing her Instrument of Transfer. The letter included the following references to the Civil Service (External Affairs) Regulations 1977 (the 1977 Regulations):
"As provided for in Regulation 5(3) [of the 1977 Regulations], the exigencies of the service require that you assume duty at the High Commission as soon as possible.
…
In keeping with Regulation 7(1) [of the 1977 Regulations], before your departure arrangements will be made for your medical examination and psychiatric assessment."
Regulation 5 of the 1977 Regulations provides so far as relevant:
"(2) Subject to subregulation (3), an officer shall be given at least two months' notice of a posting or a transfer.
(3) Where the exigencies of the service require, an officer may be given a shorter period of notice.
(4) A Foreign Service Officer who after being notified in accordance with subregulation ( 2) or (3) refuses without reasonable excuse to accept a posting shall be liable to – (a) disciplinary action; (b) transfer; or (c) both disciplinary action and transfer."
Pursuant to Regulation 7(1), appointments were made for Ms Ramjohn's medical examination and psychiatric assessment on 11 June 2004. She also served notice on her brother (her landlord) ending her tenancy as from 30 June, sold her motor car, television, video, refrigerator, washing-machine, furnishings and several other appliances and effects, and gave away some of her clothing to the poor in her area. So much for her appointment. Now for its revocation.
On 4 June 2004 the Prime Minister signed the following document addressed to the Minister of Foreign Affairs:
"I have reconsidered the appointment of Feroza Ramjohn in light of the contents of the Security Department Intelligence Report. So as to avoid any possibility of further damage to the reputation of the Republic, I hereby revoke the appointment.
Please advise me as a matter of urgency on a safe and appropriate replacement against whom there can be no question raised in this moment of crisis."
On the same day the Minister of Foreign Affairs instructed Ms Yvonne Gittens-Joseph, the Acting Permanent Secretary (in Mr Edwards' temporary absence abroad), to advise Ms Ramjohn that her transfer had been rescinded. The Minister told Ms Gittens-Joseph that the Prime Minister had said that this was for reasons of national security based on the contents of the Intelligence Report.
On 7 June 2004 Ms Gittens-Joseph called Ms Ramjohn into her office and gave her a letter (which she had drafted and signed dated 7 June) in the following terms:
"I wish to refer to [the letter dated 26 May] and to advise you that your transfer to the High Commission for the Republic of Trinidad and Tobago in London has been rescinded. You should, therefore, discontinue preparations for an early departure. With best wishes."
The Intelligence Report referred to in the Prime Minister's revocation notice was a report dated 23 June 2001, prepared by BWIA's Security Department (BWIA being at the time the national airline for Trinidad and Tobago amongst others) marked "secret", concerning the disappearance of a diplomatic pouch containing 200 blank Trinidad and Tobago passports which had been sent from Trinidad and Tobago to New York on 5 June 2001. The report stated:
"On Saturday 23 June 2001, information received from an official at the Permanent Mission to the Republic of Trinidad and Tobago in New York tends to show that Ms Feroza Ramjohn of the Registry Foreign Affairs Office in Trinidad had been involved in a major conspiracy to steal a Diplomatic Pouch containing 200 blank Trinidad and Tobago passports that was sent from the Foreign Affairs Office Trinidad to the Permanent Mission to the Republic of Trinidad and Tobago in New York on BW 5278, June...
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