AAA INVESTMENTS.docx

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AAA INVESTMENTS (PTY) LTD v MICRO FINANCE REGULATORY COUNCIL AND ANOTHER 2007 (1)

SA 343 (CC)

2007 (1) SA p343

Citation 2007 (1) SA 343 (CC)

Case No CCT51/05

Court Constitutional Court

JudgeLanga CJ, Moseneke DCJ, O'Regan J, Ngcobo J, Madala J, Mokgoro J, Nkabinde J, Sachs

J, Skweyiya J, Yacoob J, Van Der Westhuizen J

Heard February 28, 2006

Judgment July 28, 2006

CounselG J Marcus SC (with A C Dodson) for the appellant.

C D A Loxton SC (with J Cassette) for the respondents.

Annotations Link to Case Annotations

F

Flynote : Sleutelwoorde

Constitutional law - Legislation - Delegation of legislative power - In what circumstances - By G

Minister's exemption notice to regulator of micro-lending sector.

Constitutional law - Legislation - Subordinate legislation - Validity of - Rules of industry regulator -

Rules of regulator of micro-lending sector - Regulator's legislative public power to make rules
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delegated by Minister - Exercise of power not usurping power reserved to National or Provincial

Legislatures or H municipal councils - Rules valid and enforceable.

Constitutional law - Organ of State - What is - Test - Any institution exercising public power or

performing public function in terms of any legislation, qualifying as organ of State - Private entity as

organ of State - Regulator of micro-lending sector - Regulator performing public function in terms of

I national legislation - Qualifying as organ of State.

Constitutional law - Public power - Exercise of - Control of - Constitution establishing commitment to

supremacy of Constitution and rule of law - Exercise of all public power subject to constitutional

control - Exercise of public power by private entities - Regulator of micro-lending sector - In

performing regulatory function and in being subject to almost J

2007 (1) SA p344

absolute ministerial control, regulator performing public function - Bill of Rights applicable to A

regulator's decisions and rules - Constitution, ss 1(c), 2, 8(1) and 172(1)(a).

Headnote : Kopnota

The applicant sought leave, on constitutional grounds, to appeal to the Constitutional Court against

the finding of the Supreme Court of B Appeal that the rules made and administered by the first

respondent, the regulator of the micro-lending sector, were valid and enforceable. The High Court

had found that the making of the rules entailed the exercise of a public power, so that they were

governed by the Constitution of the Republic of South Africa, 1996; and that they were

unconstitutional and invalid in that, in making them, the first respondent had exercised a public

legislative power which had not C been properly delegated to it and which usurped the power

reserved to Parliament, the provincial legislatures and municipal councils. On appeal to the SCA the

appeal court set aside the decision of the High Court and found that the rules operated only in the

private sphere, by reason of a contractual relationship between the first respondent and those

micro-lenders registered with it, that they were therefore not governed by the Constitution, that the

first respondent had D been authorised by its memorandum and articles of association to make

them and that there was no basis upon which their legality could be impugned.

Held, as to the application for leave to appeal, that the Constitutional Court would grant leave to

appeal only if it were in the interests of justice to do so. In light of the significant differences

between the decision of the High Court and the decision of the SCA and E the significant implications

of the respective decisions for the South African democracy, it was clearly in the interests of justice

to hear the appeal. (Paragraphs [26] and [27] at 357H - 358H.)

Held, further, as to whether the Constitution applied to the first respondent, that under s 8(1) of the

Constitution the Bill of Rights was applicable to organs of State, and an organ of State F included

entities that performed public functions under national legislation. (Paragraph [40] at 364F - G.)

Held, further, that the first respondent performed its functions in terms of the Minister's exemption

notice, which qualified as 'national legislation', and because its functions were essentially regulatory

of an industry and were subject to the almost absolute control of the Minister, they qualified as a'public function'. (Paragraphs [43] - [44] and [45] at 365E - G and G 366D - E.)


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Held, further, that the decisions and rules of the first respondent were therefore governed by the

Constitution, including the guarantee of the right to privacy, and that the decision of the SCA could

thus not be upheld. (Paragraph [45] at 366F.)

Held, further, as to whether the first respondent exercised legislative power not expressly delegated

to it, that the Minister's exemption notice had approved the first respondent as a H regulatory

institution, and that the power to make rules had by necessary implication been delegated to it. In

the absence of a challenge to the validity of the notice, it had to be accepted as valid, and likewise

the delegation in terms of the notice. (Paragraphs [47] - [48] and [54] at 366H - 367C and 368G -

369A.)

Held, further, that the first respondent exercised public legislative power in terms of the exemption

notice. In I exercising that power the first respondent did not usurp the national, provincial or

municipal legislative power: it made binding rules authorised by law and with the force of law.

(Paragraph [49] at 367E - F.)

Held, further, that the decision of the High Court setting aside the rules as being unconstitutional

could thus not be upheld. (Paragraph [56] at 370D - E.) J

2007 (1) SA p345

The order of the SCA setting aside the order of the High Court upheld. Appeal dismissed. (Paragraphs

[62] and [64] at 371E and 372C.) A

Cases Considered

Annotations

Reported cases

Southern African cases B

AAA Investments (Pty) Ltd v Micro Finance Regulatory Council and Another2004 (6) SA 557 (T):

referred to

African Christian Democratic Party v Electoral Commission and Others2006 (3) SA 305 (CC)(2006 (5)

BCLR 579): referred to

Alexkor Ltd and Another v The Richtersveld Community and Others2004 (5) SA 460 (CC)(2003 (12)

BCLR 1301): referred to C

Aluchem (Pty) Ltd and Another v Minister of Mineral and Energy Affairs and Others1985 (3) SA 626

(T): referred to

Attorney-General, OFS v Cyril Anderson Investments (Pty) Ltd1965 (4) SA 628 (A): referred to

Bato Star Fishing (Pty) Ltd v Minister of Environmental Affairs and Others2004 (4) SA 490 (CC)(2004

(7) BCLR 687): dictum in para [22] applied D

Bernstein and Others v Bester and Others NNO1996 (2) SA 751 (CC)(1996 (4) BCLR 449): referred to
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Bruce and Another v Fleecytex Johannesburg CC and Others1998 (2) SA 1143 (CC)(1998 (4) BCLR

415): referred to

Brummer v Gorfil Brothers Investments (Pty) Ltd and Others2000 (2) SA 837 (CC)(2000 (5) BCLR 465):

referred to E

Catholic Bishops Publishing Co v State President and Another1990 (1) SA 849 (A): referred to

Chairman, Board on Tariffs and Trade, and Others v Teltron (Pty) Ltd1997 (2) SA 25 (A)([1997] 1 All

SA 387): referred to F

City of Cape Town and Another v Robertson and Another2005 (2) SA 323 (CC)(2005 (3) BCLR 199):

dictum in paras [76] - [77] applied

DEP Investments (Pty) Ltd v City Council, Pietermaritzburg1975 (2) SA 261 (N): referred to

Dawnlaan Beleggings (Edms) Bpk v Johannesburg Stock Exchange and Others1983 (3) SA 344 (W):referred to G

Executive Council, Western Cape Legislature, and Others v President of the Republic of South Africa

and Others1995 (4) SA 877 (CC)(1995 (10) BCLR 1289): dicta in paras [51] and [62] applied

Fedsure Life Assurance Ltd and Others v Greater Johannesburg Transitional Metropolitan Council and

Others1999 (1) SA 374 (CC)(1998 (12) BCLR 1458): dicta in paras [40], [56] and [58] applied H

Fraser v Naude and Others1999 (1) SA 1 (CC)(1998 (11) BCLR 1357): referred to

Government of the Province of the Eastern Cape v Frontier Safaris (Pty) Ltd1998 (2) SA 19 (SCA)([1997] 4 All SA 500): referred to

Hoffmann v South African Airways2001 (1) SA 1 (CC)(2000 (11) BCLR 1211): referred to I

Independent Electoral Commission v Langeberg Municipality2001 (3) SA 925 (CC)(2001 (9) BCLR

883): dictum in paras [9] - [11] applied

Investigating Directorate: Serious Economic Offences and Others v Hyundai Motor Distributors (Pty)

Ltd and Others: In re Hyundai Motor Distributors (Pty) Ltd and Others v Smit NO and Others2001 (1)

SA 545 (CC)(2000 (2) SACR 349; 2000 (10) BCLR 1079): referred to J

2007 (1) SA p346

Islamic Unity Convention v Independent Broadcasting Authority and Others2002 (4) SA 294 (CC)

(2002 (5) A BCLR 433): referred to

J T Publishing (Pty) Ltd and Another v Minister of Safety and Security and Others1997 (3) SA 514 (CC)

(1996 (12) BCLR 1599): dictum in paras [15] - [17] applied

Johannesburg Stock Exchange and Another v Witwatersrand Nigel Ltd and Another1988 (3) SA 132

(A): referred to B

Khumalo and Others v Holomisa2002 (5) SA 401 (CC)(2002 (8) BCLR 771): referred to
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Logbro Properties CC v Bedderson NO and Others2003 (2) SA 460 (SCA)([2003] 1 All SA 424): referred

to

Matatiele Municipality and Others v President of the RSA and Others2006 (5) SA 47 (CC)(2006 (5)

BCLR 622): C dictum in para [50] applied

Mathipa v Vista University and Others2000 (1) SA 396 (T): referred to

Member of the Executive Council for Development Planning and Local Government, Gauteng v

Democratic Party and Others1998 (4) SA 1157 (CC)(1998 (7) BCLR 855): referred to

Micro Finance Regulatory Council v AAA Investments (Pty) Ltd and Another2006 (1) SA 27 (SCA)

([2006] 3 D All SA 256): confirmed on appeal but for different reasons

Minister of Trade and Industry and Others v Nieuwoudt and Another1985 (2) SA 1 (C): referred to

Moseneke and Others v The Master and Another2001 (2) SA 18 (CC)(2001 (2) BCLR 103): referred toE

Pharmaceutical Manufacturers Association of South Africa and Another: In re Ex parte President of

the Republic of South Africa and Others2000 (2) SA 674 (CC)(2000 (3) BCLR 241): dictum in paras [19]

- [20] applied

President of the Republic of South Africa and Others v South African Rugby Football Union and

Others2000 (1) SA 1 (CC)(1999 (10) BCLR 1059): dictum in paras [132] - [139] applied F

President, Ordinary Court Martial, and Others v Freedom of Expression Institute and Others1999 (4)

SA 682 (CC)(1999 (11) BCLR 1219): dictum in para [16] applied

Rail Commuters Action Group and Others v Transnet Ltd t/a Metrorail and Others2005 (2) SA 359

(CC)(2005 (4) BCLR 301): referred to

S v Boesak2001 (1) SA 912 (CC)(2001 (1) BCLR 36): referred to G

S v Dlamini; S v Dladla and Others; S v Joubert; S v Schietekat1999 (4) SA 623 (CC)(1999 (7) BCLR

771): referred to

S v Van Rensburg1967 (2) SA 291 (C): referred to

SA Airways Pilots Association and Others v Minister of Transport Affairs and Another1988 (1) SA 362

(W): referred to H

SA Freight Consolidators (Pty) Ltd v Chairman, National Transport Commission, and Another1987 (4)

SA 155 (W): referred to

Shidiack v Union Government (Minister of the Interior) 1912 AD 642: referred to

South African Medical Council v Maytham 1931 TPD 45: referred to

Spier Properties (Pty) Ltd and Another v Chairman, Wine and Spirit Board, and Others1999 (3) SA 832

(C)([1999] 2 All SA 446): referred to I
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Taj Properties (Pty) Ltd v Bobat1952 (1) SA 723 (N): referred to

The Firs Investments (Pty) Ltd v Johannesburg City Council1967 (3) SA 549 (W): referred to

Uthukela District Municipality and Others v President of the Republic of South Africa and Others2003

(1) SA 678 (CC)(2002 (11) BCLR 1220): dictum in paras [16] - [17] applied J

2007 (1) SA p347

Veldsman and Others v Overberg Regional Services Council and Another; Martin and Others v

Overberg RegionalA Services Council and Another1991 (2) SA 651 (C): referred to

Welkom Bottling Co (Pty) Ltd en 'n Ander v Belfast Mineral Waters (OFS) (Pty) Ltd1968 (2) SA 61 (O):

referred to.

Foreign cases B

Allingham and Another v Minister of Agriculture and Fisheries [1948] 1 All ER 780 (KBD): referred to

Brant Dairy Company Ltd et al v Milk Commission of Ontario et al30 DLR (3d) 559 (SCC): referred to

Burton v Wilmington Parking Authority365 US 715 (1961): referred to C

Carltona Ltd v Commissioners of Works and Others [1943] 2 All ER 560 (CA): referred to

City of Verdun v Sun Oil Company Ltd[1952] 1 SCR 222: referred to

Cohen v West Ham Corporation [1933] Ch 814: referred to D

Crdite Suisse and Another v Waltham Forest LBC[1997] QB 362: referred to

Douglas/Kwantlen Faculty Assn v Douglas College [1990] 3 SCR 570: referred to

Eldridge v British Columbia (Attorney-General) [1997] 3 SCR 624 ((1997) 151 DLR (4th) 577): referred

to

Ellis v Dubowski[1921] 3 KB 621: referred to

Geraghty v Porter[1917] NZLR 554: referred to

Hawke's Bay Raw Milk Producers' Co-operative Co Ltd v New Zealand Milk Board[1961] NZLR 218:

referred to E

In re Golden Chemical Products Ltd[1976] 1 Ch 300: referred to

Jackson Stansfield & Sons v Butterworth [1948] 2 All ER 558 (CA): referred to

King-Emperor v Benoari Lal Sarma [1945] AC 14: referred to

Labour Relations Board of Saskatchewan v Speers and Regina Undertakers Employees Federal Union

(1948) 1 DLR F 340: referred to

Lavigne v Ontario Public Service Employees Union [1991] 2 SCR 211: referred to
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Lebron v National Railroad Passenger Corporation 513 US 374 (1995): referred to

Lewisham Borough Council and Another v Roberts [1949] 1 All ER 815: referred to G

Long v Knowles [1968] Tas SR 46: referred to

Marsh v Alabama 326 US 501 (1946): referred to

McKinney v University of Guelph [1990] 3 SCR 229: referred to

Michie v MD of Rocky View No 44 et al(1968) 64 WWR 178 (Alta): referred to H

R v Board of Assessors of Rates and Taxes of the City of Saint John (1965) 49 DLR (2d) 156: referred

to

R v Lampe and Others; Ex parte Madalozzo (1963) 5 FLR 160: referred to

R v Panel on Take-overs and Mergers, ex parte Datafin plc and Another (Norton Opax plc andAnother Intervening) [1987] 1 All ER 564 (CA): referred to

RWDSU v Dolphin Delivery Ltd[1986] 2 SCR 573: referred to I

Re Davies and Village of Forest Hill(1965) 1 OR 240: referred to

Reference Re Validity of the Regulations in Relation to Chemicals [1943] SCR 1: referred to

Stoffman v Vancouver General Hospital[1990] 3 SCR 483: referred to

Vic Restaurant Inc v City of Montreal[1959] SCR 58: referred to. J

2007 (1) SA p348

Statutes Considered

Statutes A

The Constitution of the Republic of South Africa, 1996, s 8(1): see Juta's Statutes of South Africa

2005/6 vol 5 at 1-23.

Case Information

Application for leave to appeal and appeal to the Constitutional Court against a decision of the

Supreme Court of Appeal. The facts appear from the judgment of Yacoob J. B

G J Marcus SC(withA C Dodson) for the appellant.

C D A Loxton SC(withJ Cassette) for the respondents.

Cur adv vult.

Postea (July 28). C

Judgment


8/53

Yacoob J:

Introduction

[1] This application for leave to appeal requires us to consider the status, legality and effect of

certain rules (the rules) that regulate D a class of moneylenders who have come to be known asmicro-lenders. As the term suggests, micro-lenders make relatively small loans. But this is not the

only relevant characteristic of these institutions. They differ from other lending entities in two other

material respects. First, they are allowed to lend without being bound by the terms of the E Usury

Act1 and, in particular, at finance charges that are much higher than those that all other

moneylenders may charge2 in terms of that Act. Secondly, and perhaps more importantly, their

customers are mostly poor people.

[2] The applicant, AAA Investments (Pty) Ltd (AAA Investments), a micro-lender operating in the

Eastern Cape Province, vigorously F contests the validity of these rules. Their genuineness is

defended with equal tenacity by the first respondent, the Micro Finance Regulatory Council (theCouncil) which has become responsible for the regulation of the micro-lending sector. The Council

purports to have made the rules and to administer them in the course of fulfilling this regulatory

responsibility.3 The second G respondent is the Minister of Trade and Industry (the Minister) who is

joined by reason of the interest of that office in the outcome of this case.

[3] The dispute between AAA Investments and the Council, broadly, turns, first, on whether the H

Constitution4 applies to the rules or whether the scope of the rules is so private that the

Constitution does not apply

2007 (1) SA p349

YACOOB J

to them at all. Secondly, and if the Constitution does apply, we must A decide whether the rules are

consistent with it.

[4] The constitutionality of these rules has been debated in both the Pretoria High Court (the High

Court) and the Supreme Court of Appeal (SCA). These judgments are not in harmony. The High

Court5 held that the making of the rules represents an exercise of public power and that the rules

are B constitutionally objectionable because the Council improperly exercised unauthorised public

legislative power in making them. It, accordingly, declared the rules to be inconsistent with theConstitution. The SCA,6 however, concluded that the rules operated only in the private sphere by

reason of a contractual relationship between the Council and those micro-lenders registered with it.

That C Court found no basis upon which these rules could be validly impugned, apparently on the

basis that the Constitution was not applicable. It, accordingly, reversed the High Court order. AAA

Investments wishes to appeal against this judgment and applies for the necessary leave. D

Background

[5] It is universally accepted that moneylending transactions are susceptible of abuse, mainly

because borrowers are usually in a much weaker position than lenders. Moneylenders can therefore

easily exploit E this vulnerability of the borrower, and some have been guilty of serious impropriety
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