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. ConstitutionalInstitutions…………………………………………………………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
-
- Introduction……………………………………………………………………..48
- Current jurisprudence on the use of ss 25(3) and
63(3) of the Constitution: The interpretive aid approach……50
- The new approach: Indirect justiciability
and its justification ……………………………………………………………51
- Practical application of indirect justiciability and its difference from the interpretive aid approach ……………………62
- The limits and scope of indirect justiciability …………………….65
- Indirect justiciability and remedies……………………………………67
E. A Note on Similarities and Differences 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
2. Legal reasons for non-implementation………………………………82
3. Cumulative effect of legal impediments …………………………….97
IV. 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
-
- Deklin’s view …………………………………………………………………..112
- Criticism of Deklin………………………………………………………….115
- 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 – The 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. Justification for a Manual……………………………………………………..158
1. Introduction……………………………………………………………………158
2. Non-justiciability versus justiciability………………………………161
3. Contribution towards general constitutional compliance…162
4. 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 – The 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
V. 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. Human Rights and Freedoms and the NGDP and BSO…………….209
A. Introduction…………………………………………………………………………209
B. NGDP and BSO on Questions of Inconsistency with Human Rights Provisions ………………………………………………………………….210
C. NGDP and BSO on Limiting Qualified 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. TheThesis………………………………………………………………………………..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
