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Supreme Court of Nauru |
IN THE SUPREME COURT OF NAURU
AT YAREN (CIVIL JURISDICTION)
Civil Suit No. 43/2016
BETWEEN
Capelle & Partner Pacific Occidental of Ewa District
Plaintiffs
AND:
Darrel Tom and Gideon Bagaga of Ewa District and Aiwo District
respectively as representative of the lessors
First Defendants
AND:
Proprietors and Lessors of Portion 13 Denigomodu District
Second Defendants
Before: Khan, J
Date of Hearing: 10 April 2019
Date of Judgement: 17 June 2019
Case may be cited as: Capelle & Partners v Darell Tom & 0thers
CATCHWORDS:
Where the plaintiff entered into a lease with 64% of the landowners – whether the lease was entered into by the majority of the landowners – what constitutes a majority – whether the lease was performed without the consent of the President as required by s.3(3) of the Lands Act 1976 – whether the lease was unlawful – whether the plaintiff was entitled to claim for loss of damages.
Held: 75% of the landowners constitute the majority – the consent of the President is required to the lease before it is performed – that the lease was unlawful and the plaintiff was not entitled to claim for any damages – and equity will not aid an illegal transaction.
APPEARANCES:
Counsel for the Plaintiffs: V Clodumar
Counsel for the First Defendants: D Aingimea
Counsel for the Second Defendants: K Tolenoa
JUDGEMENT
INTRODUCTION
Original Lease
“I approve this land lease agreement
His Excellency, Hon Baron Waqa, M P
President”[1]
New Lease
PROCEEDINGS
“While the lease and renewal could have been challenged by the defendants much earlier there is no argument of existence of a legal right of occupation of the plaintiff through the tenancy at will that operated from November 2015. Common law will recognize and protect the rights of the plaintiff, as the legal tenant to Portion 13 so long as it continues to pay rent and the rent in turn is received by someone who has some proprietary right to Portion 13.”
On 1 June 2016, Portion 13 landowners entered into a ‘land use agreement’ with Eigigu Holdings Corporations (EHC) Subsidiary Eigigu Holdings Cargo and Transport Services Inc. (EHCTS) for the use by EHCTS of Portion 13 as a container depot or ‘lay down’ area. The agreement was signed some landowners but according to the first defendants counsel represented a majority of the members. The term of the agreement is for 5 years and may be terminated by four months’ notice from either party.
The legal consequence of the written agreement is that, it asserts priority rights over the plaintiff’s tenancy at will rights to occupy the same land. As between the landowners and EHCTS, the agreement is a valid instrument of tenancy, but as between the plaintiff and the landowners, the issue of TAW may still be extant. However, insofar as the priority of the rights of Portion 13, the rights of EHCTS must take first place over the plaintiffs.”
PRE-TRIAL CONFERENCE
Agreed facts
ISSUES
Firstly, the lease agreement was signed by Ken Ageidu as their representative and that he should be sued rather than them as the defendants; and
Secondly, pleaded that the lease did not have 75% consent of the landowners of Portion 13 and was therefore not properly executed;
Lastly, they relied on s.3(3) and (4) of the Lands Act 1976 (Lands Act) in that the lease was not consented to by the President and therefore was void and of no effect.
SUBMISSIONS
CONSIDERATION
(3) Any person who, without the consent in writing of the President, transfers, sells or leases, or grants an estate or interest in any land in Nauru, or enters into any contract or agreement for the transfer, sale or lease of or for the granting of any estate or interest in, any land in Nauru, is guilty of an offence and is liable to a fine of $200.
(4) Any transfer, sale, lease, grant of an estate or interest, contract or agreement made or entered into in contravention of the preceding subsection shall be absolute void and of no effect.
WAS THE INITIAL AGREEMENT (LEASE) ENTERED LAWFULLY?
WHAT IS A LEASE?
WHAT IS A MAJORITY APPROVAL/CONSENT?
[4] Clay Solomon said his wife took steps to ensure that all the landowners agreed to her owning the house. She approached each landowner with a document, provided by the Lands and Survey department, seeking their signature. Of all the landowners only 3 did not sign their consent; all of the others agreed to what the plaintiff had announced.
[14] The plaintiff recognizes that if the landowner’s consent is valid then her contention that her daughter was leasing the property on the plaintiff’s behalf rather than on Blueneldi’s own behalf, would have no substance. If the document truly represents their wishes, as expressed by the plaintiff and most landowners, it is not in dispute that she could not revoke the agreement, and to demand the property back.
[33] I’m satisfied, therefore, that not only had all the interest in MQ 29 had been handed over on a permanent basis to Blueneldi by her mother but also that the mother had confirmed her agreement to get by signing the authority documents with other landowners.”
[14], [15] and [17]:
[11] In fact none of the landowners were asked in 2016 to sign that agreement, or to approve that agreement. The signatures from 2000 (or rather a photocopy of the signatures from 2000) was simply attached to the agreement with Ausaid in 2006.
[12] Ausaid remained in the property and Mrs Koroa moved to Soloman Islands where her husband was a native. In 2008 she returned to Nauru, intending to advise Ausaid that she did not want to lease the property out again, and that she would simply reside on the property herself. Ausaid, however said, that they would not deal with her on her own but would negotiate with the landowners. Having told her that, she then effectively cut off from the negotiations which took place.
[13] As a result of those negotiations, the Republic became the lessee of the premises. Thereafter Ausaid suggested to landowners that a meeting of the Nauru Lands Committee be held. More than 75% of the landowners, as is required under the Lands Act, then gave approval to the land being leased. It was first leased to the Republic and the Republic, in turn, subleased it to the Commonwealth of Australia, as one of its agencies.
[14] This claim, in effect, is for the loss of profit which had derived from the lease in the above circumstances. Whereas the profits from the lease had been entirely going to Mrs Koroa, they now, by virtue of the decision of 75% of the landowners, were being shared amongst all landowners (including Mrs Koroa).
[15] So the question is, whether having been given possession of the property in 2000 in the circumstances in which she was, Mrs Koroa had an interest which allowed her to lease the property and to stop the landowners from, in turn, purporting to lease out the property themselves. It was put by Mr Aingimea, that it is a matter of customary law and if possession is given in the circumstances that it was given here, it is not merely a temporary arrangement but it is one which cannot be changed by landowners, in which carries with its full rights for Mrs Koroa to make full use of the property, including by way of rental, as occurred here.
[17] In circumstances where the property here was no longer occupied by Mrs Koroa and had been leased out, then I am not persuaded, on that evidence, that there is a customary tradition that would prohibit the landowners from exercising their rights as landowners, save to themselves lease out the property. In the circumstances here it seems to me that whatever might have been, in some circumstances the broad ambit of customary law, in this case what has been proved is that there is no agreement for occupancy of the house was expressly and specifically confined by the landowners in a way that it could not have encompassed the right of Mrs Koroa to lease the premises as she did.
[13] in (vi) under the heading ‘Agreed Facts’
Interestingly Mr V Clodumar was the counsel for the plaintiff and at [13](vi) it was stated as:
[13](vi)That the consent was less than the precedent threshold of 75% of the landowners and it did not involve the Samson family who are 50% owners of the land Atomo Portion 84 in Yaren District.
[47] In considering what would constitute the requisite proportional permission of the landowners, both plaintiff and respondents counsel have referred to ‘the majority’.
[49] I consider that the Lands Act 1976 where section 6 refers to a requirement of ‘not less than three-fourths of the landowners of the land’ needing to give their permission in respect of granting of a lease or other license, as the basis for consolidating the legal requirement that three-fourths or 75% of the landowners need to agree to the land
[50] Therefore Rev. Roger Mwarewo cannot of his own volition permit the defendants to use, build upon, conduct a business or otherwise exercise rights over Portion 84 unless he speaks for 75% of the landowners of the land.
‘In the end, the Court finds that the plaintiffs, in wishing to construct a new building on land Portion 129 and 130 Denigomodu District will require the approval of the defendants and/or the three-quarter majority of the landowners.’
[15] The Court was of the view that 75% of all the landowners did not sign the form. So did the parties in the written agreed facts signed and given to the court.
[16] But alas! During his final submissions counsel for the defendant told the Court only 69% of the landowners signed the form.
WHETHER THE LEASE NEEDED THE CONSENT OF THE PRESIDENT IN ACCORDANCE WITH S.3(3) AND (4) OF THE LANDS ACT?
‘Mr Aroi has asked this Court to have regard to the apparent intention of the Ordinance as a whole in order to construe section 3. He has suggested that the intention of the Ordinance is to protect the Nauruans from the risk of being, cheated into transferring their lands to non-Nauruans and so losing their heritage. I agree, that in order to construe one part of a statute, it is – usually necessary, to examine that part in the context of the whole statute. But having done so in this case, I am unable to accept Mr Aroi’s suggestion regarding the intention of the Ordinance was obviously intended in 1921 to facilitate the operation of the phosphate industry by the British Phosphate Commission. If section 3 did incidentally afford protection to the Nauruans, that was not its main purpose...
In section 3 of the Lands Ordinance it is used as one of the series of expressions relating to disposition of land, ie ‘transfers, sales or leases, or enters into contract for the sale, or lease of, or for granting of any estate or interest in any land’. Those other the expressions all relate to inter vivos transactions. If the section had been intended to cover disposition by will, I should have expected the word ‘devise’ to be used. In my view, having regard to the context of section 3 in the whole Ordinance, it is proper to employ the ejusdem generis rule to decide the proper meaning of ‘transfer’ in that section. Having done so, I am satisfied that its meaning is limited to transfer inter vivos and does not extend to disposition by will.”
“I approve this land lease agreement
His Excellency, Hon Baron Waqa, MP
President”
WHAT ARE THE CONSEQUENCES OF THE FAILURE TO OBTAIN THE CONSENT OF THE PRESIDENT?
“At this stage it will be convenient to set out section 12 of Native Land Trust Ordinance, Chapter 104:
‘12.(1) Except as may be otherwise provided by regulations made hereunder, it shall not be lawful for any lessee under this Ordinance to alienate or deal with the land comprised in this lease or any part thereof, whether by sale, transfer or sub-lease or in any manner whatsoever without the consent of the Board as lessor or head-lessor first had and obtained. The granting or withholding of the consent shall be in the absolute discretion of the Board, and any sale, transfer, sub-lease or otherwise unlawful alienation or dealing effected without such consent shall be null and void ...”
The Privy Council on appeal stated as follows:
“But even treating the matter simply as one where a license to occupy coupled with possession was given, or for the purpose, as Mr Chalmers and Mr Pardoe well knew, of erecting a dwelling house and accessory buildings, it seems to their Lordships that, when this purpose was carried into effect, a ‘dealing’ with the land took place. On this point their Lordships are in accord with the Court of Appeal: and since the prior consent of the Board was not obtained it follows that under the terms of section 12 of the Ordinance No. 104 this dealing with the land was unlawful. ...
Their Lordships after full and anxious consideration of the whole matter have reached the same conclusion as the Court of Appeal namely that a dealing in the land took place without the prior consent of the Board as required by section 12 of the Ordinance: that the dealing was accordingly unlawful: and in these circumstances Equity cannot lend its aid to Mr Chalmers.”
‘The following observations of the Fiji Court of Appeal made in Murray Cockburn and Native Land Trust v Bilo Limited and others in Consolidated Civil Appeal Nos. 13 and 22 of 84 at page 26 the judgement are apposite –
“The provisions of section 12(1) are drastic and very widely expressed. They have been considered and applied in a number of cases, perhaps a leading on being Chalmers v Pardoe (1963) All ER 552 where the judicial committee accepted that there must necessarily be some prior agreement, so that the mere fact of its existence is not of itself a breach of the section. In Jai Kissun v Sumintra (1970) 16 FLR 165, 160 Gould V.P, said a signed agreement held inoperative and inchoate while consent is being sought is not caught by section 12. The problem lies in determining what acts done in relation to that agreement constitute it a “dealing” with the land rendering it illegal. The consensus of the majority in that case suggests that this would occur once it is acted upon as a valid agreement for sale (Tompkins J.A.) or implemented in any way touching the land (Gould V.P.).......”
“The principle on which courts act in cases involving illegal contracts was enunciated by MacKinon L.J. in his judgement in Harry Parker v Mason (1940) 2KB 590. At page 601 he said – ‘The rule ex turps causa non oritur actio is of course not a matter by way of defence. One of the earliest and clearest enunciation of it is that of Lord Mansfield, in Holman v Johnson (1775) 1 Cowp 343. The objection that a contract is immoral or illegal as between plaintiff and defendants sounds at all times very ill in the mouth of the defendant. It is not for his sake however that the objection is ever allowed; but it is found on general principles of policy which the defendant has the advantage of contrary to the real justice, as between him and the plaintiff by accident, if I may so say. The principle of public policy is: ex dolo malo non oritu ractio. No Court will lead its aid to a man who founds his cause of action upon an immoral or illegal act. If, from the plaintiff’s own stating or otherwise the cause of action appears to be ex turpi causa or the transgression of a positive law of this country, there the courts say he has no right to be assisted. It is upon that ground the court goes; not for the sake of the defendant, but because they will lend their aid to such a plaintiff. So if the plaintiff and defendant were to change sides and the defendant was to bring his action against the plaintiff the latter will then have the advantage of it for where both are equally in fault potior est conditio defendentis.
The appeal is allowed to the extent that the learned Judge’s judgement is varied by deletion or cancellation of the false declaration. The appellant has succeeded in part but substantially and is entitled to costs of this appeal which are to be paid by the first respondent.”
CONCLUSION
DATED this 17 day of JUNE 2019
Mohammed Shafiullah Khan
Judge
[1] Page 5 of the lease document
[2] Torrens titled in Australasia Volume 1 by EA Francis pages 264 and 265
[3] [2011] NRSC 25 (28 November 2011)
[4] [2011] NRSC 22 (22November 2011)
[5] [2017] NRSC 35; Civil Suit 53/2016 (14 June 2017)
[6] [2018] NRSC 40; Civil Suit 47/2015 (13 July 2018)
[7] Civil Suit 2/2017
[8] [1974] NRSC 2; [1969 – 1982] NLR (B112) (22 July 1974)
[9] [1963] FJUKPC1; [1963] UKPC 14 (21 May 2963); 1963 1 WLR 677
[10] [1988] FJ Law Rp 10; [1988] 34 FLR 30 (1 July 1988)
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