Democratic Assembly for Restoration and Empowerment (DARE) & Ors v The
Commissioner of Police & Ors; Zimbabwe Divine Destiny v Sauyama & Ors HH-589-2016.
In this case the judge set aside the interim order by Chigumba J.
The matter then came before Judge President with the applicants seeking a final order
setting aside the police banning order. The issue with which the court had to decide was
whether section 27 of the Public Order and Security Act violated sections 58, 59, 60, 61, 62
and 67(2) of the Constitution. More specifically the issue was whether the power of the
police to ban demonstrations in a district for up to one month was unconstitutional on the
basis that it violated the right to engage in peaceful protest action guaranteed by section 59
of the Constitution. The second issue was whether the derogations from the right to protest
fell within the permissible limitations provided for in section 86 of the Constitution.
The starting point, as the court pointed out, was section 2 of the Constitution which provides
that the Constitution is the supreme law of the country and any law that is inconsistent with
the Constitution is invalid to the extent of the inconsistency.
It is laid down in section 46(1) of the Constitution that in interpreting the provisions of the
Declaration of Rights a court must give full effect to the rights and freedoms that are
enshrined in the Declaration of Rights and must promote the values and principles that
underlie a democratic society based on openness, justice, human dignity, equality and
freedom, and in particular the values and principles set out in section 3.
Chiweshe JP acknowledged that in interpreting constitutional provisions the court must
employ a purposive and generous rather than a pedantic and restrictive interpretation. He
later referred to the Canadian case of R v Big M Drug Mart Ltd 1958 1 SCR 295 where it
was stated that the interpretation of a constitutional freedom:
“… should be a generous rather than a legalistic one, aiming at fulfilling the purpose
of the guarantee and securing for individuals the full benefit of the Charter’s
protection.”
The judge might usefully also have quoted this dictum from the case of Rattigan & Ors v
Chief Immigration Officer & Ors 1994 (2) ZLR 54 (S) at 57 F-H where the Court held:
“This Court has on several occasions in the past pronounced upon the proper
approach to constitutional construction embodying fundamental rights and
protections. What is to be avoided is the imparting of a narrow, artificial, rigid and
pedantic interpretation; to be preferred is one which serves the interest of the
Constitution and best carries out its objects and promotes its purpose. All relevant
provisions are to be considered as a whole and where rights and freedoms are
conferred on persons, derogations therefrom, as far as the language permits, should
be narrowly or strictly construed.”
Although the judge accepted that the right of peaceful protest was a fundamental
constitutional right, he decided that section 27(1) of the Public Order and Security Act that
empowers the police to ban all demonstrations for up to one month is not ultra vires the
Constitution because it satisfies the requirements set out under section 86(1) and (2) of the
Constitution in that the limitation it imposes on the constitutional right to demonstrate is “fair,
reasonable, necessary and justifiable in a democratic society based on openness, justice,
human dignity, equality and freedom.”
His value judgment on the limitation issue was arrived at in the following manner. The
purpose of s 27(1) of the Act is clearly to prevent public disorder and to protect public safety.
No democracy can function if there is public disorder and anarchy and thus the security of