CONSTITUTIONAL LAW OF SOUTH AFRICA 2nd Edition

CONSTITUTIONAL LAW OF

SOUTH AFRICA 2nd Edition

Stu Woolman & Michael BishopJanuary 2013: Revision Service 5

Editors NoteIntellectual activity is a little bit like seduction. If you go straight for your goal, you almost certainly wont succeed. If you want to be someone who contributes to world historical debates, you almost certainly wont succeed if you start off by contributing to world histori-cal debates. The most important thing to do is to be talking about the things that have, as we might put it, world historical resonance but at the level at which you can be influential. If your contribution to the conversation then gets picked up and becomes part of a larger con-versation or part of conversations happening elsewhere as well, then so be it and so much the better. So I dont think intellectuals do very well talking about the need for the world to be democratic, or the need for human rights to be better respected worldwide. Its not that the statement falls short of the desirable, but it contributes very little to either achieving its goal or adding to the rigor of the conversation. Whereas the same person, really showing exactly whats defective about democracy and democracies, sets a much better base for the argument that ours is a democracy that others should be encouraged to emulate . If you look at the history of nations that maximized the virtues that we associate with democracy, you notice that what came first was constitutionality, rule of law, and the separation of powers. Democracy almost always came last. If by democracy we mean the right of all adults to take part in the choice of government thats going to rule over them, that came very late in my lifetime in some countries that we now think of as great democracies, like Switzerland, and certainly in my fathers lifetime for other European countries like France. So we should not tell ourselves that democracy is the starting point . Thats not an argument for going back to restricted suffrage or two classes of voters, or whatever it might be you know, the informed or the uninformed. But it is an argument for understanding that democracy is not the solution to the problem of unfree societies.

Tony Judt On Intellectuals and Democracy

Dear SubscribersBoth of the authors whose work appears in this revision service understand Judts point all too well. They do not bang their drums in the service of some timeless, universal ideal. They address a decidedly South African audience primarily lawyers, judges and academics who live here and now, and who must act, in the service of justice, here and now.

Vicky Bronsteins chapter on Conflicts engages a moment in time contem-plated by the decidedly practical, hard-nosed drafters of the 1996 Constitution, but not quite yet upon us. When our multi-party constitutional democracy finally catches up with its creators, Professor Bronsteins work will be waiting to mark the path. Its consistent thematic beat enables the reader to track carefully the avail-

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CONSTITUTIONAL LAW OF SOUTH AFRICA

able interpretations for each provision that addresses potential conflicts between national legislation and provincial legislation. Her notion of deliberate regulatory space provides an incisive, preferred reading of these provisions, and raises her contribution far above more formal, quotidian assessments of the same subject matter found elsewhere.

PJ Schwikkards chapter on Evidence could, on the other hand, have been forced asunder by the sheer weight of extant case-law that notionally falls within its titular ambit. As the co-author of one of the leading treatises on evidence, Professor Schwikkard understood that the audience for her mini-monograph consists of lawyers and judges daily confronted with a more narrowly defined set of concerns regarding the legitimacy as determined by a discernible core of rights found in the Constitution of the evidence allowed into our courtrooms.

We also wish to thank Richard Stacey, Steve Allcock and Patty Searle for their editorial efforts. They understand that the path to creating and to maintaining a decent work on South African constitutional law is neither straight, nor easy, never ideal, and never, ever at an end.

Professor Stu WoolmanEditor-in-Chief, Constitutional Law of South AfricaElizabeth Bradley Chair of Ethics, Governance and Sustainable Development, University of the Witwatersrand Graduate School of Business AdministrationAcademic Director, South African Institute for Advanced Constitutional, Public, Human Rights & International LawManaging Editor, Constitutional Court Review

Advocate Michael BishopManaging Editor, Constitutional Law of South AfricaAdvocate of the High Court of South Africa, Member of the Cape BarCounsel, Legal Resources Centres Constitutional Litigation UnitResearch Associate, Department of Public Law, University of Cape TownEditor, Constitutional Court Review

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Second Edition

Revision Service 5: January 2013

FILING INSTRUCTIONS

1. Replace the Key to Contents with the Key enclosed in this Revision Service.2. Replace and Insert the following pages in the existing contents of your binder.

Old pages New pages(remove) (insert)

Volume 1Constitutional Law of South Africa, Constitutional Law of South Africa,2nd Edition, Revision Service 4: 2nd Edition, Revision Service 5:March 2012 (Editors Note) RS 4 03-12 January 2013 (Editors Note) RS 5 01-13Filing Instructions RS 4 03-12 Filing Instructions RS 5 01-13Key to Contents RS 4 03-12 Key to Contents RS 5 01-13Title page RS 4 03-12 Title page RS 5 01-13Table of Contents (13-14) RS 1 07-09 Table of Contents (13-14) RS 5 01-13Table of Contents (14A-14B) RS 3 05-11 Table of Contents (14A-14B) RS 5 01-13Table of Contents (15-16) RS 3 05-11 Table of Contents (15-16) RS 5 01-13Table of Contents (52A-blank) RS 2 10-10 Table of Contents (52A/blank) RS 5 01-13Table of Contents (53-54) OS 06-08 Table of Contents (53-54) RS 5 01-1316-i/16-ii OS 07-06 16-1/16-ii RS 5 01-1316-1/16-28 OS 07-06 16-1/16-31 RS 5 01-13

Volume 2Title page RS 4 03-12 Title page RS 5 01-13

Volume 3Title page RS 4 03-12 Title page RS 5 01-1352-i/52-ii OS 11-07 52-i/52-ii RS 5 01-1352-1/52-72 OS 11-07 52-1/52-86 RS 5 01-13

Volume 4Title page RS 4 03-12 Title page RS 5 01-13

[2nd Edition, RS 5: 0113] Filing1

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Second Edition

Revision Service 5: January 2013

KEY TO CONTENTS

The Revision Services of the Second Edition of Constitutional Law of South Africa are published incrementally as chapters are received from contributors. Each instalment reflects the law as at the date (month and year) indicated at the bottom of each page. This key reflects the contents published to date.

Please file the chapters issued in this Service into your volume in chronological order. Your volume should then consist of the following pages:

Page Reflecting the law as at (service, month and year)

Volume 1*

Constitutional Law of South Africa, 2nd Edition, Revision Service 5: January 2013 (Editors Note) . . . . . . . . RS 5 01-13Filing instructions . . . . . . . . . . . . . . . . . . . RS 5 01-13Key to Contents . . . . . . . . . . . . . . . . . . . . . RS 5 01-13Half-title page . . . . . . . . . . . . . . . . . . . . . . OS 11-071

Title Page . . . . . . . . . . . . . . . . . . . . . . . . . . RS 5 01-13Divider board: Introduction to Comparative AnalysisContents of 2nd Edition 1/2 . . . . . . . . . . RS 3 05-11Contents of 2nd Edition 3/4 . . . . . . . . . . RS 4 03-12Summary of Contents . . . . . . . . . . . . . . . . RS 1 07-09Table of Contents (1-4). . . . . . . . . . . . . . . OS* 06-08Table of Contents (5-6). . . . . . . . . . . . . . . RS 2 10-10Table of Contents (6A-blank) . . . . . . . . . . RS 2 10-10Table of Contents (7-10). . . . . . . . . . . . . . OS 06-08Table of Contents (11-12). . . . . . . . . . . . . RS 1 07-09Table of Contents (13-14). . . . . . . . . . . . . RS 5 01-13

* CLOSA consists of four volumes please rearrange the contents according to the key.* Original Service. deleted/removed.

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Table of Contents (14A-14B) . . . . . . . . . . RS 5 01-13Table of Contents (15-16). . . . . . . . . . . . . RS 5 01-13Table of Contents (17-18). . . . . . . . . . . . . OS 06-08Table of Contents (19-22). . . . . . . . . . . . . RS 3 05-11Table of Contents (22A-blank) . . . . . . . . . RS 3 05-11Table of Contents (23-46). . . . . . . . . . . . . OS 06-08Table of Contents (47-48). . . . . . . . . . . . . RS 1 07-09Table of Contents (49-52). . . . . . . . . . . . . RS 2 10-10Table of Contents (52A-blank) . . . . . . . . . RS 5 01-13Table of Contents (53-54). . . . . . . . . . . . . RS 5 01-13Table of Contents (55-56). . . . . . . . . . . . . RS 3 05-11Table of Contents (57-58). . . . . . . . . . . . . RS 4 03-12Table of Contents (58A-blank) . . . . . . . . . RS 4 03-12Table of Contents (59-66). . . . . . . . . . . . . OS 06-081-i . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 06-081-1/1-11 . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 06-082-i/2-ii . . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 06-082-1/2-49 . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 06-083-i/3-ii . . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 11-073-1/3-31 . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 11-074-i/4-iii . . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 06-084-1/4-132 . . . . . . . . . . . . . . . . . . . . . . . . . . OS 06-085-i/5-ii . . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 03-075-1/5-49 . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 03-076-i/6-ii . . . . . . . . . . . . . . . . . . . . . . . . . . . . RS 2 10-106-1/6-44 . . . . . . . . . . . . . . . . . . . . . . . . . . . RS 2 10-107-i . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 02-057-1/7-23 . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 02-058-i . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 07-068-1/8-17 . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 07-069-i/9-iv . . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 06-089-1/9-199 . . . . . . . . . . . . . . . . . . . . . . . . . . OS 06-08Divider board: Principles of Government10-i/10-ii . . . . . . . . . . . . . . . . . . . . . . . . . . OS 07-0610-1/10-77 . . . . . . . . . . . . . . . . . . . . . . . . . OS 07-0611-i/11-ii . . . . . . . . . . . . . . . . . . . . . . . . . . OS 02-0511-1/11-44 . . . . . . . . . . . . . . . . . . . . . . . . . OS 02-0512-i/12-ii . . . . . . . . . . . . . . . . . . . . . . . . . . OS 06-0812-1/12-98 . . . . . . . . . . . . . . . . . . . . . . . . . OS 06-0813-i . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 12-05

Key2 [2nd Edition, RS 5: 0113]


13-1/13-31 . . . . . . . . . . . . . . . . . . . . . . . . . OS 12-0514-i/14-ii . . . . . . . . . . . . . . . . . . . . . . . . . . RS 1 07-0914-1/14-55 . . . . . . . . . . . . . . . . . . . . . . . . . RS 1 07-0915-i . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 06-0415-1/15-21 . . . . . . . . . . . . . . . . . . . . . . . . . OS 06-0416-i/16-ii . . . . . . . . . . . . . . . . . . . . . . . . . . RS 5 01-1316-1/16-31 . . . . . . . . . . . . . . . . . . . . . . . . . RS 5 01-13Divider board: Structures of Government17-i/17-ii . . . . . . . . . . . . . . . . . . . . . . . . . . RS 3 05-1117-1/17-115 . . . . . . . . . . . . . . . . . . . . . . . . RS 3 05-1118-i/18-ii . . . . . . . . . . . . . . . . . . . . . . . . . . OS 06-0818-1/18-65 . . . . . . . . . . . . . . . . . . . . . . . . . OS 06-0819-i/19-ii . . . . . . . . . . . . . . . . . . . . . . . . . . OS 02-0519-1/19-19 . . . . . . . . . . . . . . . . . . . . . . . . . OS 02-0520-i . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 03-0720-1/20-33 . . . . . . . . . . . . . . . . . . . . . . . . . OS 03-07

Volume 2*1

Title Page . . . . . . . . . . . . . . . . . . . . . . . . . . RS 5 01-13Contents of 2nd Edition 1/2 . . . . . . . . . . RS 3 05-11Contents of 2nd Edition 3/4 . . . . . . . . . . RS 3 05-1121-i . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 02-0521-1/21-20 . . . . . . . . . . . . . . . . . . . . . . . . . OS 02-0522-i/22-iv . . . . . . . . . . . . . . . . . . . . . . . . . . OS 06-0822-1/22-138 . . . . . . . . . . . . . . . . . . . . . . . . OS 06-0823A-i . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 03-0723A-1/23A-24 . . . . . . . . . . . . . . . . . . . . . . OS 03-0723B-i/23B-ii . . . . . . . . . . . . . . . . . . . . . . . . RS 3 05-1123B-1/23B-92 . . . . . . . . . . . . . . . . . . . . . . RS 3 05-1123C-i . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . RS 1 07-0923C-1/23C-27 . . . . . . . . . . . . . . . . . . . . . . RS 1 07-0924A-i . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 12-0524A-1/24A-20 . . . . . . . . . . . . . . . . . . . . . . OS 12-0524B-i . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 12-0524B-1/24B-16 . . . . . . . . . . . . . . . . . . . . . . OS 12-0524C-i . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 12-0524C-1/24C-19 . . . . . . . . . . . . . . . . . . . . . . OS 12-0524D-i . . . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 12-03

* CLOSA consists of four volumes please rearrange the contents according to the key.

KEY




24D-1/24D-11 . . . . . . . . . . . . . . . . . . . . . OS 12-0324E-i . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 02-0524E-1/24E-16 . . . . . . . . . . . . . . . . . . . . . . OS 02-0524F-i/24F-ii . . . . . . . . . . . . . . . . . . . . . . . . OS 02-0524F-1/24F-19 . . . . . . . . . . . . . . . . . . . . . . OS 02-0525-i/25-ii . . . . . . . . . . . . . . . . . . . . . . . . . . OS 12-0325-1/25-36 . . . . . . . . . . . . . . . . . . . . . . . . . OS 12-0326-i . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 12-0526-1/26-67 . . . . . . . . . . . . . . . . . . . . . . . . . OS 12-0527-i/27-ii . . . . . . . . . . . . . . . . . . . . . . . . . . OS 03-0727-1/27-57 . . . . . . . . . . . . . . . . . . . . . . . . . OS 03-0728-i . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 12-0328-1/28-10 . . . . . . . . . . . . . . . . . . . . . . . . . OS 12-0329-i . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 06-0429-1/29-32 . . . . . . . . . . . . . . . . . . . . . . . . . OS 06-0430-i . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 12-0530-1/30-27 . . . . . . . . . . . . . . . . . . . . . . . . . OS 12-05Divider board: Operational Provisions of the Bill of Rights31-i/31-iv . . . . . . . . . . . . . . . . . . . . . . . . . . OS 02-0531-1/31-161 . . . . . . . . . . . . . . . . . . . . . . . . OS 02-0532-i/32-iii . . . . . . . . . . . . . . . . . . . . . . . . . . OS 06-0832-1/32-193 . . . . . . . . . . . . . . . . . . . . . . . . OS 06-0833-i/33-ii . . . . . . . . . . . . . . . . . . . . . . . . . . OS 12-0333-1/33-66 . . . . . . . . . . . . . . . . . . . . . . . . . OS 12-0334-i/34-iii . . . . . . . . . . . . . . . . . . . . . . . . . . OS 07-0634-1/34-136 . . . . . . . . . . . . . . . . . . . . . . . . OS 07-06

Volume 3*1

Divider board: Substantive Provisions of the Bill of RightsTitle Page . . . . . . . . . . . . . . . . . . . . . . . . . . RS 5 01-13Contents of 2nd Edition 1/2 . . . . . . . . . . RS 3 05-11Contents of 2nd Edition 3/4 . . . . . . . . . . RS 3 05-1135-i/35-iii . . . . . . . . . . . . . . . . . . . . . . . . . . OS 03-0735-1/35-85 . . . . . . . . . . . . . . . . . . . . . . . . . OS 03-0736-i/36-ii . . . . . . . . . . . . . . . . . . . . . . . . . . OS 12-0536-1/36-60 . . . . . . . . . . . . . . . . . . . . . . . . . OS 12-05




36-61/36-70 . . . . . . . . . . . . . . . . . . . . . . . . OS 06-0836-71/36-75 . . . . . . . . . . . . . . . . . . . . . . . . OS 12-0537-i . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 02-0537-1/37-28 . . . . . . . . . . . . . . . . . . . . . . . . . OS 02-0538-i/38-ii . . . . . . . . . . . . . . . . . . . . . . . . . . OS 12-0338-1/38-43 . . . . . . . . . . . . . . . . . . . . . . . . . OS 12-0339-i . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 07-0639-1/39-2 . . . . . . . . . . . . . . . . . . . . . . . . . . RS 3 05-1139-3/39-21 . . . . . . . . . . . . . . . . . . . . . . . . . OS 07-0640-i/40-iii . . . . . . . . . . . . . . . . . . . . . . . . . . OS 07-0640-1/40-99 . . . . . . . . . . . . . . . . . . . . . . . . . OS 07-0641-i/41-ii . . . . . . . . . . . . . . . . . . . . . . . . . . OS 12-0341-1/41-55 . . . . . . . . . . . . . . . . . . . . . . . . . OS 12-0342-i/42-iv . . . . . . . . . . . . . . . . . . . . . . . . . . OS 06-0842-1/42-193 . . . . . . . . . . . . . . . . . . . . . . . . OS 06-0843-i . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 02-0543-1/43-38 . . . . . . . . . . . . . . . . . . . . . . . . . OS 02-0544-i/44ii* . . . . . . . . . . . . . . . . . . . . . . . . . . OS 06-041

44-1/44-52 . . . . . . . . . . . . . . . . . . . . . . . . . OS 12-0344-53/44-56 . . . . . . . . . . . . . . . . . . . . . . . OS 06-042

44-57/44-68 . . . . . . . . . . . . . . . . . . . . . . . . OS 12-0345-i/45-ii . . . . . . . . . . . . . . . . . . . . . . . . . . OS 03-0745-1/45-52 . . . . . . . . . . . . . . . . . . . . . . . . . OS 03-0746-i/46-ii . . . . . . . . . . . . . . . . . . . . . . . . . . OS 12-0346-1/46-37 . . . . . . . . . . . . . . . . . . . . . . . . . OS 12-0347-i/47-ii . . . . . . . . . . . . . . . . . . . . . . . . . . RS 1 07-0947-1/47-47 . . . . . . . . . . . . . . . . . . . . . . . . . RS 1 07-0948-i/48-iii . . . . . . . . . . . . . . . . . . . . . . . . . . OS 03-0748-1/48-68 . . . . . . . . . . . . . . . . . . . . . . . . . OS 03-0749-i . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 12-0349-1/49-38 . . . . . . . . . . . . . . . . . . . . . . . . . OS 12-0350-i/50-iii . . . . . . . . . . . . . . . . . . . . . . . . . . RS2 10-1050-1/50-68 . . . . . . . . . . . . . . . . . . . . . . . . . RS2 10-1051-i/51-ii . . . . . . . . . . . . . . . . . . . . . . . . . . OS 07-0651-1/51-186 . . . . . . . . . . . . . . . . . . . . . . . . OS 07-0652-i/52-ii . . . . . . . . . . . . . . . . . . . . . . . . . . RS 5 01-1352-1/52-86 . . . . . . . . . . . . . . . . . . . . . . . . . RS 5 01-13

* Replaces page 44-i/44-ii issued in OS 12-03. Replaces page 44-55/44-56 issued in OS 12-03.

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Volume 4*1

Title Page . . . . . . . . . . . . . . . . . . . . . . . . . . RS 5 01-13Contents of 2nd Edition 1/2 . . . . . . . . . . RS 3 05-11Contents of 2nd Edition 3/4 . . . . . . . . . . RS 3 05-1153-i . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 07-0653-1/53-59 . . . . . . . . . . . . . . . . . . . . . . . . . OS 07-0654-i . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 12-0354-1/54-12 . . . . . . . . . . . . . . . . . . . . . . . . . OS 12-0355-i/55-ii . . . . . . . . . . . . . . . . . . . . . . . . . . OS 07-0655-1/55-57 . . . . . . . . . . . . . . . . . . . . . . . . . OS 07-0656A-i/56A-ii . . . . . . . . . . . . . . . . . . . . . . . OS 12-0556A-1/56A-47 . . . . . . . . . . . . . . . . . . . . . . OS 12-0556B-i/56B-ii . . . . . . . . . . . . . . . . . . . . . . . RS 3 05-1156B-1/56B-79 . . . . . . . . . . . . . . . . . . . . . . RS 3 05-1156C-i . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 02-0556C-1/56C-30 . . . . . . . . . . . . . . . . . . . . . . OS 02-0556D-i . . . . . . . . . . . . . . . . . . . . . . . . . . . . . RS 4 03-1256D-1/56D-38 . . . . . . . . . . . . . . . . . . . . . RS 4 03-1257-i/57-iii . . . . . . . . . . . . . . . . . . . . . . . . . . OS 11-0757-1/57-95 . . . . . . . . . . . . . . . . . . . . . . . . . OS 11-0758-i/58-ii . . . . . . . . . . . . . . . . . . . . . . . . . . OS 03-0758-1/58-58 . . . . . . . . . . . . . . . . . . . . . . . . . OS 03-0758-59/58-60 . . . . . . . . . . . . . . . . . . . . . . . . OS 11-0758-61/58-75 . . . . . . . . . . . . . . . . . . . . . . . . OS 03-0759-i/59-ii . . . . . . . . . . . . . . . . . . . . . . . . . . OS 11-0759-1/59-107 . . . . . . . . . . . . . . . . . . . . . . . . OS 11-0760-i . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 11-0760-1/60-16 . . . . . . . . . . . . . . . . . . . . . . . . . OS 11-0761-i . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 03-0761-1/61-24 . . . . . . . . . . . . . . . . . . . . . . . . . OS 03-0762-i . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 200262-1/62-24 . . . . . . . . . . . . . . . . . . . . . . . . . OS 200263-i/63-iii . . . . . . . . . . . . . . . . . . . . . . . . . . OS 06-0863-1/63-128 . . . . . . . . . . . . . . . . . . . . . . . . OS 06-0864-i . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 02-0564-1/64-54 . . . . . . . . . . . . . . . . . . . . . . . . . OS 02-0565-i . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 12-0565-1/65-18 . . . . . . . . . . . . . . . . . . . . . . . . . OS 12-05




66-i . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . OS 03-0766-1/66-13 . . . . . . . . . . . . . . . . . . . . . . . . . OS 03-07Divider board: Table of CasesTable of Cases 1/Table of Cases-130 . . . RS 4 03-12Divider board: Subject Matter IndexIndex-1/Index-52 . . . . . . . . . . . . . . . . . . . RS 4 03-12

KEY



CONSTITUTIONAL LAW OF

SOUTH AFRICASecond Edition

STUART WOOLMANBA (Hons) (Wesleyan) JD (Columbia Law) MA (Columbia) LLD (Pretoria)

Professor & Elizabeth Bradley Chair of Ethics, Governance & Sustainable Development, University of the Witwatersrand Graduate School of Business Administration

Co-Director, South African Institute for Advanced Constitutional, Public, Human Rights and International Law Consultant, Ashira Legal Advisors (Pty) Ltd

Editor-in-Chief, Constitutional Law of South Africa

MICHAEL BISHOPBA LLB LLM (Pretoria) LLM (Columbia Law)

Advocate of the High Court and Member of the Cape BarHonorary Research Associate, Department of Public Law, University of Cape Town

Junior Counsel, Constitutional Litigation Unit, Legal Resources CentreJSD Candidate, Columbia Law School

Managing Editor, Constitutional Law of South Africa

Title_Imprint.indd 1 2013/03/11 9:24 AM

Second Edition, Revision Service 5 2013

Juta & Co Ltd.First floor, Sunclare Building, 21 Dreyer Street, Claremont, 7708, Cape Town, South Africa

This book is copyright under the Berne Convention. In terms of the Copyright Act 98 of 1978, no part of this book may be reproduced or transmitted in any form or by any means, electronic or mechanical, including photocopying, recording or by any information storage and retrieval system, without permission in writing from the Publisher.

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Whilst every effort has been made to ensure that the information published in this work is accurate, the editors, publishers and printers take no responsibility for any loss or damage suffered by any person as a result of the reliance upon the information contained therein.

ISBN: 978-0-7021-7308-0

Typesetting by ANdtp Services, Cape Town.Print Management by Print Communications

[2nd Edition, RS 5: 0113]

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CONSTITUTIONAL LAW OF SOUTH AFRICA, 2nd EDITION

Contents

PART I Courts, PrinCiPles of Government & struCtures of Government

Chapter Subject Matter Author(s)

Volume 1

Structure of Constitutional Analysis

1 A Baedeker to Constitutional Stu Woolman, Theunis Roux & MichaelLaw of South Africa Bishop

2 Constitutional History Stu Woolman & Jonathan Swanepoel3 Constitutional Litigation Matthew Chaskalson, Gilbert Marcus &

Michael Bishop

Courts

4 Jurisdiction Sebastian Seedorf5 Rules & Procedure in Kate Hofmeyr

Constitutional Matters6 Costs Michael Bishop7 Standing, Ripeness & Mootness Cheryl Loots8 Amicus Geoff Budlender9 Remedies Michael Bishop

Principles of Government

10 Democracy Theunis Roux11 Rule of Law, Legality and the Frank Michelman

Supremacy of the Constitution12 Separation of Powers Sebastian Seedorf & Sanele Sibanda13 Founding Provisions Chris Roederer14 Co-operative Government & Intergovernmental Relations Stu Woolman & Theunis Roux15 Legislative Competence Victoria Bronstein16 Conflicts VictoriaBronstein

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Structures of Government

17 National Legislative Authority Michael Bishop & Ngwako Raboshakga18 National Executive Authority Christina Murray & Richard Stacey19 Provincial Legislative Authority Tshepo Madlingozi & Stu Woolman20 Provincial Executive Authority Christina Murray & Okyerebea Ampofo-

Anti21 Provincial Constitutions Stu Woolman

Volume 222 Local Government Nico Steytler & Jaap de Visser23A Public Administration Anshal Bodasing23B Security Services Stu Woolman23C War Powers Stephen Ellmann24 Chapter Nine Institutions:

24A Public Protector Michael Bishop & Stu Woolman24B Auditor General Stu Woolman & Yolandi Schutte24C SA Human Rights Jonathan Klaaren

Commission24D Commission for Gender Cathi Albertyn

Equality24E Independent Justine White

Communication Authority of South Africa

24F Commission for the Stu Woolman & Julie Soweto-Aullo Promotion & the Protection of the Rights of Cultural, Religious and Linguistic Communities

25 Public Procurement Glenn Penfold & Pippa Reyburn26 Traditional Leadership Tom Bennett & Christina Murray27 Public Finances Ross Kriel & Mona Monadjem28 Transitional Provisions Matthew Chaskalson29 Elections Glenda Fick30 International Law & Hennie Strydom & Kevin Hopkins

International Agreements

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CONSTITUTIONAL LAW OF SOUTH AFRICA, 2nd EDITION

Contents

PART II the Bill of riGhts


Operational Provisions

31 Application Stu Woolman32 Interpretation Lourens du Plessis33 Interpretation of Socio- Sandra Liebenberg

Economic Rights34 Limitations Stu Woolman & Henk Botha

Volume 3

Substantive Provisions

35 Equality Cathi Albertyn & Beth Goldblatt36 Dignity Stu Woolman37 Reproductive Rights Michelle OSullivan38 Privacy David McQuoid-Mason39 Life Marius Pieterse40 Freedom and Security of the Michael Bishop & Stu Woolman

Person41 Freedom of Religion, Belief Paul Farlam

and Opinion42 Freedom of Expression Dario Milo, Glenn Penfold & Anthony

Stein43 Freedom of Assembly Stu Woolman44 Freedom of Association Stu Woolman45 Political Rights Jason Brickhill & Ryan Babiuch46 Property Theunis Roux47 Childrens Rights Adrian Friedman, Angelo Pantazis &

Ann Skelton48 Land Juanita Pienaar & Jason Brickhill49 Sentencing and Punishment Dirk Van Zyl Smit

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50 Environment Morne van der Linde & Ernst Basson51 Criminal Procedure: Rights of Frank Snyckers & Jolandi le Roux

Detained, Arrested & Accused Persons

52 Evidence PJ Schwikkard

Volume 453 Labour Relations Carole Cooper54 Freedom of Trade, Occupation Dennis Davis

and Profession55 Housing Kirsty McLean56 Socio-Economic Rights:

56A Health David Bilchitz56B Water Malcom Langford, Richard Stacey &

Danwood Chirwa56C Food Danie Brand56D Social Security Mia Swart

57 Education Stu Woolman & Michael Bishop58 Community Rights: Language, Stu Woolman

Culture & Religion59 Access to Courts Jason Brickhill & Adrian Friedman60 Citizenship Jonathan Klaaren61 States of Emergency Nicole Fritz62 Access to Information Jonathan Klaaren & Glenn Penfold63 Just Administrative Action Jonathan Klaaren & Glenn Penfold64 Slavery, Servitude and Forced Stu Woolman & Michael Bishop

Labour65 OfficialLanguages IainCurrie66 Movement and Residence Jonathan Klaaren

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SUMMARY OF CONTENTS

Chapter PageVolume 1

1 A Baedeker to Constitutional Law of South Africa 112 Constitutional History 213 Constitutional Litigation 314 Jurisdiction 415 Rules and Procedure 516 Costs 617 Standing, Ripeness and Mootness 718 Amicus Curiae 819 Remedies 9110 Democracy 10111 The Rule of Law, Legality and the Supremacy of the Constitution 11112 Separation of Powers 12113 Founding Provisions 13114 Co-operative Government & Intergovernmental Relations 14115 Legislative Competence 15116 Conflicts 16117 National Legislative Authority 17118 The President and the National Executive 18119 Provincial Legislative Authority 19120 Provincial Executive Authority 20121 Provincial Constitutions 21122 Local Government 221

Volume 223A Public Administration 23A123B Security Services 23B123C War Powers 23C124A Public Protector 24A124B Auditor General 24B124C Human Rights Commission 24C124D The Commission for Gender Equality 24D124E Independent Communication Authority of South Africa (ICASA) 24E124F Commission for Promotion & Protection of the Rights of Cultural, Religious and

Linguistic Communities 24F125 Public Procurement 25126 Traditional Leadership 26127 Public Finance 27128 Transitional Provisions on Executive Authority, Assets and Liabilities 28129 Elections 29130 International Law & International Agreements 30131 Application 311

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SUMMARY OF CONTENTS

Chapter Page32 Interpretation 32133 The Interpretation of Socio-Economic Rights 331

Volume 334 Limitations 34135 Equality 35136 Dignity 36137 Reproductive Rights 37138 Privacy 38139 Life 39140 Freedom and Security of the Person 40141 Freedom of Religion, Belief and Opinion 41142 Freedom of Expression 42143 Freedom of Assembly 43144 Freedom of Association 44145 Political Rights 45146 Property 46147 Childrens Rights 47148 Land 48149 Sentencing and Punishment 49150 Environment 50151 Criminal Procedure 51152 Evidence 521

Volume 453 Labour Relations 53154 Freedom of Trade, Occupation and Profession 54155 Housing 55156A Health 56A156B Water 56B156C Food 56C156D Social Security 56D157 Education 57158 Community Rights, Language, Culture & Religion 58159 Access to Courts 59160 Citizenship 60161 State of Emergency 61162 Access to Information 62163 Just Administrative Action* 63164 Slavery, Servitude and Forced Labour 64165 OfficialLanguages 65166 Freedom of Movement 66-1

Table of Cases Table of Cases1

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TABLE OF CONTENTS

Volume 1

1 A Baedeker to Constitutional Law of South AfricaStu Woolman, Theunis Roux & Michael Bishop

1.1 Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11

1.2 On the methodology of Constitutional Law of South Africa. . . . . . . . . . . . . . . . 111.3 On the relationship between Constitutional Law of South Africa and the Final

Constitution. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15

2 Constitutional HistoryStu Woolman & Jonathan Swanepoel

2.1 The Potemkin Constitution . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21

2.2 Colonial politics and Apartheid . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25

(a) Sasikhona (we were always here). . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25

(b) (Im)modest beginnings of European involvement in South Africa . . . . . . 28(c) European expansion in South Africa . . . . . . . . . . . . . . . . . . . . . . . . . . . 29

(d) English and Roman-Dutch legal traditions . . . . . . . . . . . . . . . . . . . . . . 210

(e) Early failed attempts at judicial review. . . . . . . . . . . . . . . . . . . . . . . . . 211

(f) The formation of the Union . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 212

(g) Construction of a bifurcated, racist State . . . . . . . . . . . . . . . . . . . . . . . 213

(i) The South African Native Affairs Commission . . . . . . . . . . . . . . . 213

(ii) The racial construction of citizenship . . . . . . . . . . . . . . . . . . . . . . 215

(h) The rise of Apartheid: Harris I, Harris II & Collins . . . . . . . . . . . . . . . . 215(i) Apartheid and the Republic . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 217

(i) Denationalization of black South Africans . . . . . . . . . . . . . . . . . . . 217

(ii) Apartheid and the creation of Bantustans . . . . . . . . . . . . . . . . . . . 218

(iii) Apartheid and the silencing of opposition . . . . . . . . . . . . . . . . . . . 219

(iv) Sharpeville, 1960 and Soweto, 1976 . . . . . . . . . . . . . . . . . . . . . . . 221

(v) States of Emergency . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 222

(vi) 1983 Constitution and the endgame of Apartheid . . . . . . . . . . . . . 222

2.3 The struggle for liberation. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 223

(a) Ghandi, pass laws & Satayagrha . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 223(b) The African National Congress, the Pan Africanist Congress and Black

Consciousness . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 225

(c) The Freedom Charter of 1955 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 227(d) The Rivonia Treason Trial . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 230

(f) The United Democratic Front . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 231

(g) Lawyers, Human Rights and the Rule of Law . . . . . . . . . . . . . . . . . . . 232

2.4 The road to democracy: private meetings, negotiations,referenda and an assassination . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 234

(a) Meetings in the 1980s, here and abroad . . . . . . . . . . . . . . . . . . . . . . . 234

(b) ANC initiatives and initiatives from Apartheid institutions. . . . . . . . . . . 235

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(c) CODESA and the Multi-Party Negotiating Forum . . . . . . . . . . . . . . . . 236(d) The election of 27 April 1994 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 239

2.5 The Interim Constitution, the Constitutional Assembly, 34 ConstitutionalPrinciples and the Certification of the Final Constitution . . . . . . . . . . . . . . 239

(a) The drafting of the Final Constitution . . . . . . . . . . . . . . . . . . . . . . . . . 239(b) First Certification Judgment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 242

(i) Law and politics . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 242

(ii) The grounds for Non-Certification: Institutional concerns, the Ruleof Law & Constitutionalism. . . . . . . . . . . . . . . . . . . . . . . . . . . . . 243

(c) Second Certification Judgment. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 245

2.6 The Consolidation of Constitutional Democracy . . . . . . . . . . . . . . . . . . . . 246

(a) Constitutional amendments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 246

(b) The 14th Amendment Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 247

(c) Dignity, democracy, legality and the PotemkinConstitution . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 248

3 Constitutional LitigationMatthew Chaskalson, Gilbert Marcus & Michael Bishop

3.1 Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31

3.2 What is a constitutional issue? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 32

3.3 Conceptualising the case . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 33

(a) The context in which a constitutional issue may arise . . . . . . . . . . . . . 33

(b) The need for pleading . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 35

(c) Bill of Rights litigation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 37

(d) Non-chapter 2 litigation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 310

(e) Interpretive issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3133.4 Procedural and jurisdictional issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 315

(a) Mootness, ripeness and standing. . . . . . . . . . . . . . . . . . . . . . . . . . . . . 315

(b) Joinder of necessary organs of state . . . . . . . . . . . . . . . . . . . . . . . . . . 316

(c) Submissions by an amicus curiae . . . . . . . . . . . . . . . . . . . . . . . . . . . . 317

(d) Form of proceedings . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 318

(e) Appropriate court . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 319

(f) Reasons for a court to decline to exercise constitutional jurisdiction . . . . 320

(g) Principle of constitutional avoidance . . . . . . . . . . . . . . . . . . . . . . . . . . 3213.5 Appeals. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 321

(a) Appeals to the Constitutional Court . . . . . . . . . . . . . . . . . . . . . . . . . . 321

(b) Appeals to the Supreme Court of Appeal . . . . . . . . . . . . . . . . . . . . . . 322

3.6 Costs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 322

3.7 The duties of the state in constitutional litigation . . . . . . . . . . . . . . . . . . . . 323

(a) General ethical duty . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 323

(b) Specific evidentiary burdens . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 327

(i) Limitations. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 327

(ii) Remedies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 328(c) Constitutional duty of the state in the enforcement of court orders . . . . 330

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Table of Contents2 [2nd Edition, Original Service: 0608]

4 JurisdictionSebastian Seedorf

4.1 Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 42

4.2 The Conceptual Framework for Constitutional Jurisdiction in South Africa . . 45

(a) Jurisdiction and the institutional function of the Constitutional Court . . . . 45

(b) The merits of a case and the dividing line between jurisdiction and accessto the Constitutional Court . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 410

4.3 Jurisdiction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 417

(a) The threshold requirement of finding a constitutional matter . . . . . . . . 417

(i) Just labels: constitutional matter, constitutional issue, constitutionalquestion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 418

(ii) The Constitutional Court has not embraced any concept ofconstitutional matter . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 418

(iii) The Fraser list of case types in which the Constitutional Court hasjurisdiction. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 420

(b) FC s 167(4): Constitutional matters falling under the Courts exclusivejurisdiction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 422

(i) Disputes between organs of state, FC s 167(4)(a) . . . . . . . . . . . . . . 427

(ii) Constitutionality of Bills, FC s 167(4)(b) . . . . . . . . . . . . . . . . . . . . 433

(aa) Initiation of judicial review of a Bill . . . . . . . . . . . . . . . . . . . 433

(bb) Scope of judicial review of a Bill. . . . . . . . . . . . . . . . . . . . . . 437

(iii) Abstract review of Acts of Parliament and provincial Acts,FC s 167(4)(c) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 440

(iv) Amendments to the Constitution, FC s 167(4)(d) . . . . . . . . . . . . . . 444

(v) Constitutional obligations of Parliament or the President,FC s 167(4)(e) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 445

(vi) Certification of a provincial Constitution, FC s 167(4)(f) . . . . . . . . . 448

(vii) Interim relief in matters of exclusive jurisdiction . . . . . . . . . . . . . . 449

(c) Constitutional matters of concurrent jurisdiction explicitly mentioned inthe Constitution . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 452

(i) Confirmation of orders of statutory invalidity, FC s 167(5) . . . . . . . 453

(ii) Interpretation, protection or enforcement of the Constitution,FC s 167(7) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 455

(d) Other constitutional matters of concurrent jurisdiction . . . . . . . . . . . . . 460

(i) Interpretation of legislation and development of the common law orcustomary law in accordance with the spirit, purport and objects ofthe Bill of Rights, FC s 39(2). . . . . . . . . . . . . . . . . . . . . . . . . . . . 460(aa) Cases involving the common law . . . . . . . . . . . . . . . . . . . . . 462

(bb) Cases involving legislation . . . . . . . . . . . . . . . . . . . . . . . . . . 466

(ii) Exercise of public power and administrative action . . . . . . . . . . . . 468

(iii) Interpretation and application of legislation giving effect to theConstitution . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 477

(iv) Fair procedure in the judicial system. . . . . . . . . . . . . . . . . . . . . . . 482

(e) Issues connected with decisions on constitutional matters . . . . . . . . . . . 485

(f) The Constitutional Courts power to make the final decision whether amatter is a constitutional matter, FC s 167(3)(c) . . . . . . . . . . . . . . . . . . 488

TABLE OF CONTENTS


(g) The Constitutional Courts findings on what is not a constitutional matter 489(i) Factual findings by lower courts. . . . . . . . . . . . . . . . . . . . . . . . . . 489

(ii) Incorrect application of the law . . . . . . . . . . . . . . . . . . . . . . . . . . 492

(h) An alternative conception of the Constitutional Courts jurisdiction . . . 4101

(i) Consequences of the Constitutional Courts approach to itsjurisdiction. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4101

(aa) It has become impossible to determine when the ConstitutionalCourt will decline jurisdiction. . . . . . . . . . . . . . . . . . . . . . . 4102

(bb) Every case notionally raises a constitutional matter . . . . . . . 4106

(cc) The transformative function of the Constitutional Courtis impaired. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4106

(ii) A functional approach to jurisdiction . . . . . . . . . . . . . . . . . . . . . 4109(aa) Limits of a substantive, and benefits of a functional,

understanding of constitutional matter . . . . . . . . . . . . . . . . 4109

(bb) Constitutional leeways as limits to constitutional jurisdiction . 4118(cc) FC 167(7) as a basis for the Constitutional Courts jurisdiction 4122

(dd) Consequences of the functionalist approach for someConstitutional Court judgments . . . . . . . . . . . . . . . . . . . . . 4124

4. Access to the Constitutional Court. . . . . . . . . . . . . . . . . . . . . . . . . . . . . 41255. The Constitutional Court as a Single Apex Court . . . . . . . . . . . . . . . . . . 4128

5 Rules and Procedure in Constitutional MattersKate Hofmeyr

5.1 Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 51

5.2 General overview of the rules . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 515.3 Analysis of particular rules . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 57

(a) Rules 8 & 10: Intervenors and amici curiae . . . . . . . . . . . . . . . . . . . . . 57

(i) Rule 8: Intervention of parties in proceedings . . . . . . . . . . . . . . . . 57

(ii) Rule 10: Amici curiae submissions . . . . . . . . . . . . . . . . . . . . . . . 510

(b) Rules 14 & 15: Referral of Bills and Acts . . . . . . . . . . . . . . . . . . . . . 512

(i) Referral of Bills . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 512

(ii) Referral of Acts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 513

(c) Rule 16: Confirmation proceedings . . . . . . . . . . . . . . . . . . . . . . . . . . 514(d) Rule 18: Direct access . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 517

(e) Rules 19 & 20: Appeals to the Constitutional Court . . . . . . . . . . . . . . 521

(i) Factors relevant to all applications for leave to appeal . . . . . . . . . . . . . . 524

(aa) Importance of the issue raised . . . . . . . . . . . . . . . . . . . . . . 524

(bb) Prospects of success . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 524

(cc) Public interest in a determination of the constitutionalissues raised . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 524

(dd) Accuracy of pleadings . . . . . . . . . . . . . . . . . . . . . . . . . . . . 525

(ii) Factors relevant to applications for leave to appeal directly to theConstitutional Court . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 525

(aa) Savings in time and cost . . . . . . . . . . . . . . . . . . . . . . . . . . 525

(bb) Urgency of having a final determination of the matters in issue 525

(cc) Value of the views of the Supreme Court of Appeal. . . . . . . 525

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(dd) Value of the views of the Labour Appeal Court 526(ee) Compliance with obligations of co-operative government 526

(iii) Factors relevant to applications for leave to appeal in custody cases: Best interests of the child 526

(iv) Factors relevant to applications for leave to appeal in criminal cases 527(aa) Simultaneous appeals 527(bb) Litigants aggrieved by a decision 527

(v) Factors to be considered with respect to appeals against interim orders of execution 529

(vi) Factors to be considered with respect to appeals from the Labour Appeal Court 529

Appendix: Constitutional Court Rules 530

6 CostsMichael Bishop61 Introduction 6162 Basic Principles 61

(a) Traditional approach 61(b) General Approach: The Biowatch Framework 63

(i) Disputes between a private party and the state 64(ii) Disputes where the state plays a regulatory role 65(iii) True private disputes 66(iv) Inter-governmental disputes 69(v) Criminal litigation 69(vi) Conclusion 612

63 Factors Justifying a Departure from the Default Approach 612(a) The reason for litigation 612

(i) Bothma v Biowatch 613(ii) Motivation in practice 615

(b) Partial success 616(c) Conduct of the litigation 617

(i) Frivolous constitutional claims 618(ii) Vexatious litigation 618(iii) General inappropriate conduct 618(iv) States duty to the Court 622

(d) Miscellaneous 623(i) Role of attorney 623(ii) Who funds the litigation 624

6.3 SpecificCases 624(a) Interlocutory applications 624(b) Matters disposed of on the papers 625(c) Hague Convention on Civil Aspects of International

Child Abduction (1980) 626(d) Costs in applications in terms of FC s 80 626(e) Counsel appearing at the request of the Court 628

64 Using Costs to Prevent Litigation: Settlement and Security 628(a) Settlement offers 628

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(b) Security for costs 62965 Costs Orders of Lower Courts 630

(a) Cost orders of lower courts 631(b) Appeals against costs orders 633

66 Punitive Costs Awards 634(a) Costs on an attorney and client scale 634(b) Costs de bonis propriis 638

66 Taxation of Costs 64167 Clarifying the Meaning of Costs Awards 644

7 Standing, Ripeness and MootnessCheryl Loots71 Introduction 7172 Standing 71

(a) The concept of standing 71(b) Standing in South African law before 1994 72(c) Standing under the Final Constitution 73

(i) Anyone acting in their own interest 74(ii) Anyone acting on behalf of another person who cannot act in

their own name 76(iii) Anyone acting as a member of, or in the interest of, a group or

class of persons 77(iv) Anyone acting in the public interest 711(v) An association acting in the interest of its members 712

(d) The wider effect of FC s 38 71373 Ripeness 714

(a) The concept of ripeness 714(b) Ripeness in South African law before 1994 715(c) Ripeness under the Final Constitution 716

(i) Ripeness qua premature action 717(ii) Failure to exhaust other remedies 717(iii) Matters that can be resolved without reaching the constitutional issues 718

74 Mootness 718(a) The concept of mootness 718(b) Mootness in South African law before 1994 720(c) Mootness under the Final Constitution 720

75 Delineating the doctrines of standing, ripeness and mootness 723

8 Amicus CuriaeGeoff Budlender81 Introduction 81

(a) Traditional conceptions of the amicus curiae 81(b) Amicus curiae in the new constitutional order 81(c) Amicus curiae contrasted with an intervening party 84

82 Parameters of the role of the amicus 8583 Amicus curiae in the Constitutional Court 86

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(a) Constitutional Court rule 10 86(b) The mechanism for admission 87(c) Procedure for applying for admission as an amicus curiae 88(d) Content of the application for admission 89(e) Courts discretion as to whether to admit an amicus curiae 89(f) Submission of argument by an amicus curiae 810(g) New factual material and evidence 811

84 Amicus curiae in other courts 812(a) Supreme Court of Appeal 812(b) Labour Appeal Court 813(c) High Court 814(d) Land Claims Court 815(e) Labour Court 816

85 Costs 816

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9 RemediesMichael Bishop

9.1 Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 91

(a) Pointless . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 91

(b) A Roadmap . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 93

9.2 Theory . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 94

(a) What is a remedy? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 94(b) Ubi jus ibi remedium . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 96

(i) General Principle . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 96

(ii) Deviations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 97

(aa) Imaginary Deviations. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 97

(bb) Real Deviations. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 911

(iii) The Legal Position . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 915

(iv) Remedies without Rights? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 916

(c) Rights and Remedies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 918(i) Ways of Understanding the Rights-Remedies relationship . . . . . . . . 919

(aa) Automatic Remedialism . . . . . . . . . . . . . . . . . . . . . . . . . . . . 919

(bb) Rights Essentialism . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 920

(cc) Remedial Equilibration . . . . . . . . . . . . . . . . . . . . . . . . . . . . 921

(ii) Methodological Concerns . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 923

(iii) An Equilibrating Court . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 924

(aa) Remedial Flexibility . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 924

(bb) Remedial Deterrence . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 926(cc) Remedial Incorporation . . . . . . . . . . . . . . . . . . . . . . . . . . . . 931

(dd) Remedial Substantiation . . . . . . . . . . . . . . . . . . . . . . . . . . . . 934

(ee) Litigation Impact. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 937

(ff) Remedies and Jurisdiction . . . . . . . . . . . . . . . . . . . . . . . . . . 938

(gg) Conclusion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 939

(iv) Equilibration and Transformation. . . . . . . . . . . . . . . . . . . . . . . . . 939

(d) Discretion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 944

(i) The Extent of Discretion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 945

(aa) Standards Axis . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 946(bb) The Review Axis. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 949

(ii) Discretion and Legitimacy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 953

(e) Choice of Remedy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 955

(i) Textual Considerations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 956

(ii) Rights-maximising and Interest Balancing . . . . . . . . . . . . . . . . . . . 959

(iii) Ways of Conceiving Choice . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 961

(a) Bollykys Formula . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 961

(b) The Purposive Approach . . . . . . . . . . . . . . . . . . . . . . . . . . . 962(c) The Principled Approach . . . . . . . . . . . . . . . . . . . . . . . . . . . 964

(d) Taxonomies and Constraints . . . . . . . . . . . . . . . . . . . . . . . . 965

(iv) Structuring Remedies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 965

(aa) Effective Relief . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 966

(1) General principle . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 966

(2) Corrective or distributive . . . . . . . . . . . . . . . . . . . . . . . . 967

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(3) Nature of the violation . . . . . . . . . . . . . . . . . . . . . . . . . 969(4) Similarly situated. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 969

(5) Reason for violation . . . . . . . . . . . . . . . . . . . . . . . . . . . 971

(bb) Unavoidable limits. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 971

(1) Multiple goals. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 971

(2) Conflicting rights . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 971

(cc) Avoidable limits . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 973

(1) Separation of powers . . . . . . . . . . . . . . . . . . . . . . . . . . 973

(x) Legislature . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 974(y) Executive . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 974

(2) Courts limitations. . . . . . . . . . . . . . . . . . . . . . . . . . . . . 975

(3) Administration of justice . . . . . . . . . . . . . . . . . . . . . . . . 975

(4) Financial costs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 976

(5) Impact on third parties . . . . . . . . . . . . . . . . . . . . . . . . . 976

(6) Fault . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 977

(dd) Conclusion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 977

(f) Constitutional and Private Remedies . . . . . . . . . . . . . . . . . . . . . . . . . . 978

(i) Characteristics . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 978(ii) When should litigants rely on private remedies? . . . . . . . . . . . . . . . 979

(iii) Indirect Application and Remedies . . . . . . . . . . . . . . . . . . . . . . . . 982

9.3 Categorising Remedies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 984

9.4 Remedies Following a Finding of Inconsistency. . . . . . . . . . . . . . . . . . . . . 986

(a) Hierarchy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 986

(b) Reading Down . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 987

(i) The nature of reading down: interpretation or remedy? . . . . . . . . . 987

(ii) When is reading down appropriate? . . . . . . . . . . . . . . . . . . . . . . . 990(c) Bald Declarations of Invalidity . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 995

(d) Limiting Substantive Impact . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 997

(i) Severance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 998

(ii) Notional Severance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9102

(iii) Reading-in . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9104

(iv) Shinga . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9110

(e) Limiting Temporal Impact . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9111

(i) Suspension. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9111(aa) How does suspension operate? . . . . . . . . . . . . . . . . . . . . . . 9111

(x) Suspension as a resolutive condition . . . . . . . . . . . . . . . 9111

(y) Do suspended orders that come into effect haveretrospective force? . . . . . . . . . . . . . . . . . . . . . . . . . . . 9112

(z) Calculating time periods . . . . . . . . . . . . . . . . . . . . . . . 9114

(bb) When is suspension appropriate? . . . . . . . . . . . . . . . . . . . . 9115

(x) Factors in support of suspension . . . . . . . . . . . . . . . . . 9116

(y) Factors against suspension . . . . . . . . . . . . . . . . . . . . . . 9121

(cc) Interim orders . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9123

(dd) The Period of Suspension . . . . . . . . . . . . . . . . . . . . . . . . . 9126

(ee) Can suspension be extended? . . . . . . . . . . . . . . . . . . . . . . . 9127

(ii) Retrospectivity . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9128


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(aa) Mechanics of Retrospectivity . . . . . . . . . . . . . . . . . . . . . . . 9128(x) The default position . . . . . . . . . . . . . . . . . . . . . . . . . . 9129

(y) Ways to limit the default position . . . . . . . . . . . . . . . . . 9132

(bb) Reasons for limiting retrospectivity . . . . . . . . . . . . . . . . . . . 9134

(x) Injustice to individuals. . . . . . . . . . . . . . . . . . . . . . . . . 9135

(y) Administration of Justice . . . . . . . . . . . . . . . . . . . . . . . 9139

(z) Validating invalidating legislation . . . . . . . . . . . . . . . . . 9144

(cc) Criticism . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9145

9.5 Individual Remedies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9150(a) Damages . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9151

(i) Indirect Constitutional Damages. . . . . . . . . . . . . . . . . . . . . . . . . 9151

(ii) Direct Constitutional Damages. . . . . . . . . . . . . . . . . . . . . . . . . . 9156

(aa) Damages to Compensate for Loss . . . . . . . . . . . . . . . . . . . 9157

(bb) Punitive Damages . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9160

(cc) Nominal Damages . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9162

(iii) Is the quantum of damages a constitutional matter? . . . . . . . . . . . 9162

(b) Individual Declaratory Relief . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9164

(i) The Nature of the Power . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9164(ii) When should declarations be ordered? . . . . . . . . . . . . . . . . . . . . 9167

(c) Interdictory Relief . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9170

(i) Interdicts versus Declarations . . . . . . . . . . . . . . . . . . . . . . . . . . 9170

(ii) Interim Interdicts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9170

(iii) Final Interdicts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9172

(d) Contractual relief. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9175

9.6 Systemic Remedies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9176

(a) Declarations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9176(b) Interdicts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9178

(c) Supervisory Orders . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9179

(i) Models for Supervision . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9179

(ii) The Case Law on Structural Interdicts . . . . . . . . . . . . . . . . . . . . 9181

(aa) Supervisory interdicts refused . . . . . . . . . . . . . . . . . . . . . . . 9182

(bb) Supervisory interdicts granted . . . . . . . . . . . . . . . . . . . . . . . 9184

(iii) Factors . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9188

(iv) Nyathi . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9190(v) A Theory for Systemic Remedies . . . . . . . . . . . . . . . . . . . . . . . . 9191

(vi) Beyond Supervision . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9194

9.7 Legislative Remedies. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9196

9.8 Criminal Remedies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9198

10 DemocracyTheunis Roux

10.1 Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 101

10.2 Democracy in political theory . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 103

(a) Direct democracy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 104

(b) Representative democracy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 108

(c) Contemporary accounts of democracy . . . . . . . . . . . . . . . . . . . . . . . . 1011

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(i) Pluralist democracy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1012(ii) Participatory democracy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1014

(iii) Deliberative democracy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1015

(d) Constitutional democracy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1018

10.3 Constitutional provisions referring to democracy . . . . . . . . . . . . . . . . . . . 1022

(a) Preamble . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1022

(b) Founding provisions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1024

(c) Democracy in the Bill of Rights . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1032

(d) The powers and functions of Parliament, the provinciallegislatures and municipal councils . . . . . . . . . . . . . . . . . . . . . . . . . . 1037

(i) Rules and orders concerning legislative business must take accountof representative and participatory democracy . . . . . . . . . . . . . . . 1038

(ii) Participation by minority parties in proceedings of Parliament,provincial legislatures and municipal councils . . . . . . . . . . . . . . . . 1039

(iii) Public access to and involvement in Parliament and the provinciallegislatures . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1043

(e) Miscellaneous provisions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1045

10.4 Constitutional rights shaping South African democracy . . . . . . . . . . . . . . 1046

(a) Freedom of expression . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1048

(b) Political rights. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1053

(c) Socio-economic rights . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1057

10.5 The principle of democracy in South African constitutional law . . . . . . . . 1062

(a) Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1062

(b) The principle of democracy in the constitutional text . . . . . . . . . . . . . 1065(c) The principle of democracy in the case law . . . . . . . . . . . . . . . . . . . . 1069

11 The Rule of Law, Legality and the Supremacy of the ConstitutionFrank I. Michelman

11.1 Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 111(a) The common law doctrine of legality . . . . . . . . . . . . . . . . . . . . . . . . . 111

(b) Legality as a norm of enacted constitutional law. . . . . . . . . . . . . . . . . . 112

(c) A product of judicial interpretation . . . . . . . . . . . . . . . . . . . . . . . . . . . 112

11.2 The principle of legality and the jurisdiction of the Constitutional Court . . . 114

(a) The scope of constitutional matters: The Constitutional Court notenvisioned as a court of general jurisdiction . . . . . . . . . . . . . . . . . . . . . 114

(b) A problem: The rule of law as a constitutional matter. . . . . . . . . . . . . . 116

(i) An optimistic view of the limited-in-principle scope ofconstitutional matters . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 117

(ii) The destabilizing effect of introducing the principle of legality as aconstitutional matter . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1111

(iii) The Constitutional Court has never directly addressed this difficulty 1112

11.3 The causes of the constitutionalisation of the legality principle . . . . . . . . . 1115

(a) Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1115

(b) The straight historical account . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1126

(c) The justificatory account . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1123


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(i) The transformative character of the Final Constitution and the special role of the Constitutional Court 1124

(ii) The impulse and need for retention of a general principle of legality after the onset of the Bill of Rights 1126

(iii) The risks of locating the legality principle outside the Final Constitution 1129

114 Supremacy of the Constitution 1134(a) Constitutional supremacy as a value (not just a rule) 1134(b) The unity of the legal system and the pursuit of justice 1136(c) An all-pervasive Constitution? 1138(d) Constitutional supremacy as basic-law status 1141(e) Constitutional supremacy and discursive style 1142

12 Separation of PowersSebastian Seedorf & Sanele Sibanda121 Introduction 121122 Origins and Conceptual Framework of the Separation of Powers Doctrine 123

(a) Power arrests power: the historical development of the idea of separated powers 123

(b) Constitutionalism, checks and balances and the pure form of separation of powers 1210

(c) The different forms of separation of powers 1213123 Separation of Powers under the South African Constitution 1216

(a) Separation of powers in the Interim Constitution and the Constitutional Principles 1217

(b) Separation of powers in the Final Constitution 1220(i) The legislature and the executive 1221(ii) The judiciary 1225(iii) Independent constitutional institutions 1230

(c) Beyond the text: separation of powers as a living doctrine 1234(i) A distinctively South African model of separation of powers 1235(ii) Justiciability of the separation of powers principle 1236

(d) Emerging general principles and doctrines of separation of powers 1239(i) Legislature, executive and judiciary between pre-eminent domains

and checks and balances 1239(aa) A pre-eminent domain for each branch of government 1239(bb) The availability of checks and balances 1245

(ii) Judicial review and the separation of powers 1249(aa) Judicial review in the context of the supremacy of the

Constitution, the political question doctrine and intergovernmental respect and courtesy 1250

(bb) Separation of powers and the applicable standard of review 1259(cc) Separation of powers and remedies 1273

(iii) Delegation of legislative authority and subordinate legislation 1286(iv) Executive-controlled dispute resolution 1294

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13 Founding ProvisionsChristopher Roederer131 Introduction 132132 FC Chapter 1 does not contain all the foundational values

and not all of the provisions in FC Chapter 1 are foundational 133(a) Not all the foundational values are found in FC Chapter 1 133(b) Not all the provisions of FC Chapter 1 are foundational 139

133 Relationship between the founding provisions and an objective, normative value system 139

134 Founding provisions and the basic structure argument 1315135 Function of the various sections of FC Chapter 1 1318

(a) FC ss 1 and 2 1318(b) FC ss 3 and 6 1325(c) FC ss 4 and 5 1326

136 Are the founding provisions absolute or at least more important than other provisions in the Final Constitution? 1327

137 Do the founding provisions create justiciable rights? 1328(a) FC s 1 does not create justiciable rights 1329(b) Other provisions in FC Chapter 1 give rise to justiciable rights 1330

14 Co-operative Government & Intergovernmental RelationsStuart Woolman & Theunis Roux141 Introduction 14 1142 Comparative concepts of co-operative government 14 3143 Co-operative government and the Final Constitution 14 7

(a) The general framework of co-operative government 14 7(b) FC s 40 14 9

(i) FC s 40(1): Distinctive, interdependent and interrelated 14 9(ii) FC s 40(2): Parties bound by chapter 3 14 10

(c) FC s 41 14 14(i) FC s 41(1) 14 14

(aa) FC s 41(1)(d): The rule of law 14 15(bb) FC s 41(1)(e): Respect for institutional integrity 14 15(cc) FC s 41(1)(f): Enumerated powers 14 16(dd) FC s 41(1)(g): Abuse of power 14 16(ee) FC s 41(1)(h): The duty to avoid litigation 14 18

(ii) FC s 41(2) 14 20(iii) FC s 41(3) 14 23(iv) FC s 41(4) 14 24

144 Intergovernmental relations 14 24(a) Definingintergovernmentalrelations(IGR) 14 24(b) Structures and Statutes for Intergovernmental Relations 14 24

(i) The National Council of Provinces 14 25(ii) TheIntergovernmentalForum(IGF)andthePresidents

Co-ordinating Committee (PCC) 14 26

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(iii) Intergovernmental Relation Committees of Ministers and Members of Executive Councils (MINMECs) 14 27

(iv) Forum for South African DirectorsGeneral (FOSAD) 14 28(v) Fiscal and Financial Commision 14 28(vi) The Intergovernmental Fiscal Relations Act 14 29(vii) The Division of Revenue Act and the Explanatory Memorandum

for the Division of Revenue 14 29(viii) The Public Financial Management Act 14 30(ix) The Provincial Tax Regulation Process Act 14 30(x) The Borrowing Powers of Provincial Government Act 14 30(xi) Medium Term Budget Policy Statement (MTBPS) and Medium

Term Expenditure Framework (MTEF) 14 31(xii) Provincial intervention in local government 14 31

(c) An Assessment of Intergovernmental Relations and Co- operative Government by the State and Civil Society 14 32

145 The Intergovernmental Relations Framework Act 13 of 2005 14 34(a) The Purpose of the Act 14 34(b) A Reasonable Period for Promulgation of the IGFRA? 14 35(c) How the IGRFA Works 14 36

(i) The Main Forums for Intergovernmental Cooperation and Coordination 14 36

(ii) Implementation Protocols 14 35(iii) Settlement of Intergovernmental Disputes 14 39

(d) What Disputes the IGFRA Does Not Cover 14 41(i) ConflictsbetweenNationalLegislationandProvincialLegislation 14 41(ii) Intra-governmental Disputes between Provincial Departments 14 42

(aa) The Problem 14 42(bb) Executive Authority of Provinces 14 47(cc) ALackof DepartmentalPersonality 14 48(dd) FindingaLegalNexus 14 50(ee) Using The IGRFA as a Guide to Intra-

Governmental Disputes 14 51(ff) Dispute Settlement 14 51(gg) Enforcement 14 52

(e) Practical Problems with the IGFRA: Premiers Intergovernmental Forums and the District Intergovernmental Forums 14 52

(f) ANCDominanceandtheEfficacyof theIGFRA 14 54

15 Legislative CompetenceVictoria Bronstein151 Introduction 15-1152 The legislative authority of the Republic 15-2

(a) Schedule 4 Concurrent legislative competence 15-3(b) Schedule 5 Exclusive provincial legislative competence 15-4(c) Exclusive national legislative competence and assignment of powers by

the national legislature 15-5(d) Other provincial legislative powers 15-5

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153 Interpretive issues 15-7(a) The categorisation function: Allocating legislation to functional areas 15-7

(i) Presumptions and politics 15-8(ii) A functional approach 15-10(iii) The purpose and effect of the legislation 15-12(iv) An historical approach 15-12

(b) Interpreting the scope of the section 44(2) override 15-13(c) Interpreting the scope of the incidental power 15-14

(i) The current source of the incidental power 15-14(ii) Implicit use of the incidental power in DVB Behuising 15-14(iii) Approaching the incidental power 15-17(iv) Is there a point beyond which the incidental power cannot go as

implied by the minority judgement in DVB Behuising? 15-20(v) Another approach 15-20(vi) The scope of the incidental power in relation to schedule 5

competences 15-20(d) When is competence tested? 15-21

16 ConflictsVictoria Bronstein161 Introduction 16-1

(a) Textual background

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