Implementing Constitutional Goals – Proposals for Papua New Guinea

Table of contents

Preface                 1

Glossary               3

CHAPTER ONE Introduction ………………………………………………………..5

I. National Goals and Directive Principles

and Basic Social Obligations …………………………………………………………..5

II. Methodology …………………………………………………………………………………5

III.  Finding ………………………………………………………………………………………..6

IV.  Outline …………………………………………………………………………………………6

V.  Conclusion …………………………………………………………………………………….9

CHAPTER TWO Political and Legal Context ……………………………….11

I.  Introduction …………………………………………………………………………………11

II. Introducing the Problem ……………………………………………………………..12

III. Basic Outline of the Political and Legal System …………………………..13

IV. Laws of Papua New Guinea ………………………………………………………..15

V. Civil and Political Rights and Freedoms ……………………………………….17

VI. Constitutional Institutions …………………………………………………………18

VII.  Conclusion ……………………………………………………………………………….19

CHAPTER THREE Role of the National Goals and Directive Principles and Basic Social Obligations …………………………………………….21

I.  Introduction …………………………………………………………………………………21

II.  Overview of Historical Forces Shaping the NGDP and BSO ………..22

     A. Introduction…………………………………………………………………………..22

B. Historical Overview ……………………………………………………………….23

III.  Process of Developing and Adopting the NGDP and BSO ………….26

IV.  Role of the NGDP and BSO ………………………………………………………..29

A. Introduction…………………………………………………………………………..29

B. NGDP and BSO: Underlying Aims/Objectives of the Constitution…………………………………………………………………………..30

1. Introduction ……………………………………………………………………..30
2. Aims/Objectives of the Constitution …………………………………30

V.  Conclusion …………………………………………………………………………………..34

CHAPTER FOUR The Constitutional Duty to Implement ……………35

I.  Introduction …………………………………………………………………………………35

II. Principles of Constitutional Interpretation ………………………………….35

A. Introduction…………………………………………………………………………..35

B. Constitutional Supremacy ………………………………………………………36

C. Paramount Consideration to the Dispensation of Justice ……….38

D. The Constitution as a Living Document …………………………………38

E. Constitution Read as a Whole ………………………………………………..39

F. Fair and Liberal Interpretation ………………………………………………..39

G. Self-executing Nature of the Constitution ………………………………40

H. Constitutional Directive to be Judicially Enlightened by the NGDP and BSO ………………………………………………………….40

I. Use of Certain Materials as Aids to Interpretation …………………..41

J. Home-Grown Constitution ……………………………………………………..42

III. Sections 25 and 63 of the Constitution ……………………………………….43

A. The CPC on Implementation …………………………………………………44

B.  NGDP and BSO as Part of the Preamble of the Constitution ….45

C. The Concept of Justiciability …………………………………………………..46

D. Duty to Implement Under ss 25 and 63 ………………………………….48

  1.  Introduction ……………………………………………………………………..48

   2. Current jurisprudence on the use of ss 25(3) and 63(3) of the Constitution: e interpretive aid approach……50

   3. The new approach: Indirect justiciability and its justification ……………………………………………………………51

    4. Practical application of indirect justiciability and its difference from the interpretive aid approach ……………………62

   5. The limits and scope of indirect justiciability …………………….65

    6. Indirect justiciability and remedies ……………………………………67

E. A Note on Similarities and Dierences between ss 25 and 63 of the Constitution …………………………………………………………….69

IV  Conclusion …………………………………………………………………………………71

CHAPTER FIVE Implementation Record of Governmental Bodies and Impediments …………………………………………………………………..73

I.  Introduction …………………………………………………………………………………73

II. Governmental Bodies’ Record of Implementing the NGDP and BSO ………………………………………………………………………………………74

A. Introduction…………………………………………………………………………..74

B. The Legislature ……………………………………………………………………….74

C. The Executive …………………………………………………………………………75

D. The Courts …………………………………………………………………………….76

E. The Ombudsman Commission ………………………………………………78

III. Impediments to Implementation of the National Goals and Directive Principles and Basic Social Obligations ……………………….79

A. Introduction…………………………………………………………………………..79

B. Reasons for Non-Implementation of the NGDP and BSO ………80

1. Brief over-view of non-legal reasons for non-implementation …………………………………………………………80

1. Legal reasons for non-implementation ……………………………82
2. Cumulative eect of legal impediments …………………………….97

VI  Conclusion …………………………………………………………………………………97

CHAPTER SIX Implementation Framework and the Interconnectedness Approach …………………………………………………………..99

I.  Introduction …………………………………………………………………………………99

II. Separation of Powers ………………………………………………………………….100

A. Introduction…………………………………………………………………………100

B. Origins of Separation of Powers ……………………………………………100

C. Separation of Powers ……………………………………………………………101

D. Comparative Experiences of Application of Separation of Powers …………………………………………………………………………………102

III. Separation of Powers in Papua New Guinea and the Interconnectedness Approach …………………………………………………..103

A. Introduction…………………………………………………………………………103

B. Constitutional Recognition of Separation of Powers……………..105

C. Practical Application of the Principle of Separation of Powers ……………………………………………………………………………..109

D. Interconnectedness Approach ………………………………………………112

1. Deklin’s view …………………………………………………………………..112
2. Criticism of Deklin ………………………………………………………….115
3. Interconnectedness approach ………………………………………….115

IV.  Conclusion ……………………………………………………………………………….118

CHAPTER SEVEN The National Parliament …………………………….. 121

I.  Introduction ……………………………………………………………………………….121

II. Overview of the Two Methods of Implementation for the Parliament …………………………………………………………………………………121

A. Introduction…………………………………………………………………………121

B. Direct and Indirect Implementation ……………………………………..122

III. Direct Implementation……………………………………………………………..123

A. First Order Implementation and Second Order Implementation ……………………………………………………………………123

B. Legal Avenue for Direct Implementation of the NGDP and BSO by Parliament …………………………………………………………125

1. Introduction ……………………………………………………………………125
2. Non-application of ss 22 and 23 of the Constitution ………..125
3. Use of s 19 of the Constitution for direct implementation ……………………………………………………………….129

IV. Indirect Implementation …………………………………………………………..142

A. Preambles/Objective Section of Legislation ………………………….143

B. Control of Finance………………………………………………………………..145

C. Parliamentary Debates …………………………………………………………147

V.  Conclusion …………………………………………………………………………………149

CHAPTER EIGHT e National Executive ………………………………. 151

I.  Introduction ……………………………………………………………………………….151

II. Brief Overview …………………………………………………………………………..152

III. A Proposal for the National Executive Council – Cabinet Manual ………………………………………………………………………..153

A. Introduction…………………………………………………………………………153

B. Relevance of Comparison ……………………………………………………..153

C. The Legal Status of the NEC Decision-Making Process ………..157

D. Justiÿcation for a Manual ……………………………………………………..158

   1. Introduction ……………………………………………………………………158

   2. Non-justiciability versus justiciability ………………………………161

   3. Contribution towards general constitutional compliance…162

1. Recording constitutional development …………………………….164

   5. Whole of government approach ………………………………………166

E. The Content of the Manual …………………………………………………..168

1. Introduction ……………………………………………………………………168
2. Contents of manual: Australia, New Zealand and the United Kingdom ……………………………………………………………..168
3. Contents of a NEC manual ………………………………………………170

F. Legal Status and Accessibility of the Manual ………………………….177

IV.  Conclusion ……………………………………………………………………………….179

CHAPTER NINE e Judiciary…………………………………………………. 181

I.  Introduction ……………………………………………………………………………….181

II. Contextual Role of Preambles and Indirect Justiciability ……………182

A. Introduction…………………………………………………………………………182

B. Contextual Role of Statutory Interpretation ………………………….182

C. Indirect Justiciability and the Contextual Approach ……………..184

1. Introduction ……………………………………………………………………184
2. Framing constitutional issues for the courts using NGDP and/or BSO – Indirect justiciability …………………………………184
3. Conclusion ………………………………………………………………………187

III. Developing the Underlying Law ……………………………………………….187

A. Introduction…………………………………………………………………………187

B. Proposals for Implementing the NGDP and BSO in the Development of the Underlying Law …………………………………….188

1. NGDP and BSO as a shield ……………………………………………..188
2. NGDP and BSO as a sword ……………………………………………..192

IV. Judicial Review of Administrative Action ………………………………….196

A. Constitutional Basis for Using Existing Judicial Review Procedures to Implement NGDP and BSO …………………………..196

1. Introduction ……………………………………………………………………196
2. Constitutional basis for engaging the NGDP and BSO in judicial review …………………………………………………………………198
3. Grounds for judicial review of administrative action ……….199
4. Remedy for Administrative Judicial Review …………………….201
5. Case study on incorporating the NGDP and BSO in the judicial review process – Medaing v Ramu Nico ……………..201

VI. Weak-form Judicial Review ………………………………………………………..204

A. Constitutional Basis of Weak-form Judicial Review ……………..204

1. Introduction ……………………………………………………………………204

B. Applying Weak-form Judicial Review to Papua New Guinea’s Context…………………………………………………………………………………205

C. The Constitutional Basis ………………………………………………………206

D. Case study on Medaing ………………………………………………………..207

E.  Conclusion …………………………………………………………………………..209

VI.  Conclusion …………………………………………………………………………..209

    A. Introduction…………………………………………………………………………209

    B. NGDP and BSO on Questions of Inconsistency with Human Rights Provisions ………………………………………………………………….210

    C.  NGDP and BSO on Limiting Qualiÿed Rights ……………………..211

1. Introduction ……………………………………………………………………211
2. Relevance of comparative experience ………………………………212
3. Commentary on case laws ……………………………………………….213

D. Enforcement of Human Rights …………………………………………….218

VII.  Conclusion ……………………………………………………………………………..219

CHAPTER TEN Ombudsman Commission ……………………………… 221

I.  Introduction ……………………………………………………………………………….221

II. Overview of Ombudsman Commission Roles ……………………………221

III. Implementing the NGDP and BSO in the Ombudsman Functions …………………………………………………………………………………224

A. Introduction…………………………………………………………………………224

B. Administrative Complaints Functions ………………………………….224

1. Introduction ……………………………………………………………………224
2. Ombudsman Commission reports …………………………………..226
3. Wrongful conduct ……………………………………………………………228
4. Defects in law or administrative conduct …………………………234
5. Discriminatory practice …………………………………………………..235
6. A proposal for investigation into government policy-making under defective laws and/or administrative practice jurisdiction of the Ombudsman Commission ………………….237

C. Legal Consideration of Ombudsman Commission Reports / Recommendations ……………………………………………………………….241

D. Leadership Code Function …………………………………………………..244

1. Introduction ……………………………………………………………………244
2. Methodology …………………………………………………………………..245
3. Formulation of the misconduct allegations ……………………..247
4. Section 27(4) constitutional direction ……………………………..253

E. Ability to Raise Constitutionality of Laws, Bills, etc ………………255

1. Introduction ……………………………………………………………………255
2. Constitutional review/advisory opinion generally ……………255
3. Special references by the Ombudsman Commission to the Supreme Court for compliance with the NGDP and/or BSO ……………………………………………………………………..260

IV.  Conclusion ……………………………………………………………………………….263

CHAPTER ELEVEN Conclusion ………………………………………………. 265

I.  Introduction ……………………………………………………………………………….265

II. Implementation Proposals …………………………………………………………265

A.  Overview ……………………………………………………………………………..265

1. Legislature ………………………………………………………………………265
2. Executive…………………………………………………………………………266
3. Judiciary…………………………………………………………………………266
4. Ombudsman ……………………………………………………………………267

III. The thesis ………………………………………………………………………………..268

Appendix One – National Goals and Directive Principles ………………269

Appendix Two – Basic Social Obligations……………………………………….275

Appendix Three – Legislation Referring to the NGDP and BSO …….277

Bibliography……………………………………………………………………………………287