terested parties"—Who have not taken part
the first
stance proceed
gs—Entitlement to file
dependentappeals of their own. 5 10 15 Central Bank—Appointments of employees or officers of—Made after the promulgation of the Public Service Law, 1967 {Law 33 of 1967)—And when there was not
existence a Public Service Commission empowered under Article 125 of the Constitution to make such appointments—But only a Commission set up under the said Law 33 of 1967 andnot so empowered—Validly made by its Governor under s. 15
the context of section 15
cludethe notion of promotion. Constitutional Law—Constitutionality of Legislation—Constitutiona319 AND OTHERS v - 1976 Oct. 15 D. THEODORIDES AND OTHERS v. S. PLOUSSIOU toy of s. 15
.1 of the Constitution—"Appoint"
s. 15
relation to the issue of the validityof the subject-matter of the recourse and is decided solelyfor the purposeof the particular case—Unconstitutional statute—Not ipsofacto void—Whendoes it become void. The respondent
this appeal, by means of a recourse under 15 Article 146 of the Constitution, challenged the decision of the Central Bank of Cyprus (appellant 3) to appoint the
terested parties (appellants 1 and 2) to the post of Manager, Central Bank on a permanent basis. The said appointments were made by the Governor of the Central Bank undertheprovisions of section 15
force for the time being and
accordance with regulations relating to the officers and employees of the Bank made under this Law, appoint, suspend or dismiss any officer or employee of the Bank other than officers or employees
respect of whom other provision is made
this Law". 320 10 The trial Judge's decision was attacked by means of appeals which were filed both by the
terested parties and the Bank. Counsel for the appellants contended: 5 10 15 That section 15
this connection that the position
the present case is distinguishable from that
Markoullides and The Republic, 3 R.S.C.C. 30 because the relevant powers of the Governor of the Central Bank, under section 15
him, by Law 48/63, which is a Law enacted after 1960. Counsel for the respondent contended: 20 25 2Q 35 That theappointments
question could not have been made under section 15
question were,
effect, promotions they were outside the ambit of the powers of the Governor under section 15
question were made
March, 1970, and long before then the Public Service Commission, set up under Article 124 of the Constitution, had ceased to exist and to function as envisaged by Articles 122 to 125 of the Constitution. What was functioning
1970was another organ, which though described as a "Public Service Commission", was really different from that set up under the Constitution
1960. This new Commission was set up under the Public Service Law, 1967 (Law 33/67).
the course of the hearing of the appeals there has been raised a procedural issue namely, whether or not appellants 1 and 2 could appeal on their own against the decision of the trial Judge. It has been argued,
this connection, by counsel for the Quoted at p. 332 post. 321 1976 Oct. 15 D. THEODORIDES AND OTHERS v. S. PLOUSSIOU 1976 Oct. 15 D. THEODORIDES AND OTHERS v. S. PLOUSSIOU respondent
these appeals, that such a course was not open to them, especially as they had been notified,
the usual manner, to take part
theproceedings before thetrial Judge—(if they so wished)—as "
terested parties", but they failed to do so. 5 Held,(I) on theprocedural issue(Per Triantafyllides, P., L. Loizou, A. Loizou and Malachtos, JJ. concurring): That since appellants 1 and 2 chose not to take part
the proceedings at the first
stance stage they were not entitled,
the present case, tofileindependent appeals of their own; that, as,however, theDecision given by the trial Judge has been chal- 10 lenged on appeal by appellant 3 (as the respondent
the re course) there is no difficulty
permitting appellants 1 and 2 to take part
the proceedings before this Court, for the pro tection of their own
terests (pp. 330-331 post). Held, (II)on themeritsof the appeals {Per Triantafyllides P., L. Loizou, A. LoizouandMalachtos, JJ. concurring): 15
. 1, but can only regulate 20 the exercise, by the Commission, of the said competence; that this conclusion is very much reinforced when Article 125.1 is looked at
thecontext of theconstitutionalstructureofwhich it forms part, and when it is borne
mind that the expression "subject to"
.1 corresponds to the word "τηρούμε- 25 vcuv"
the Greek original text of Article 125. 1; and that, even after Law 48/63 was enacted, it was still notpossible for the Governor of theCentralBank to exercise validly any powers of appointment under section 15
existence and was exercisingits relevant compe- 35 tencethey would have to be annulled as having been madeinthe exercise of powers, by the Governor of the Central Bank,
a matter
consistent with theConstitution.
1970, the Commission which was set up under Law 33/67 wasnot empowered tomake the subjudice appointments of appellants 1and2, but thatthey ought tobemadeby theGovernor of theappellant Central Bank under section15
mind as being on the statute book. 1976 Oct. 15 D. THEODORIDES " A N D OTHERS~" v. S. PLOUSSIOU 15 20 25 30 35 40 (b) That as Law48/63,not beingan enactment whichexisted before the coming
to operation of the Constitution
1960, could not possibly have been treated as
validated by operation of Article 188 of the Constitution, due to any conflict with Article 125.1 of the Constitution; that as a statute which contravenes a provision of the Constitution does not ipso facto become void but it is only when it is declared to be void by a competent Court,
a regular proceeding, that the effects of the statute being unconstitutional are to take place; that as until the enactment of Law 33/67 (or even until to day)there did not
tervene any judicial decision impugning the constitutionality, or otherwise the validity of Law 48/63, it is right to conclude that Law 48/63 is one of the special Laws envisaged by the definition of "public service"
section 2, as well as by the provisions of sections 3 and 5, of Law 33/67; and that, accordingly, it was not
tended to vest, by means of Law 33/67,
the Public Service Commission set up under it, the power, under section 15
the service of appellant 3, such as those which are
volved
the present proceedings (pp. 338-339 post). (c) That, therefore, this Court is faced with theposition that when the two subjudiceappointments—of appellants 1and2— were made by the Governor of appellant 3, under section 15
view of thefact that hadthey been made under 323 1976 Oct. 15 D. THEODORTOES AND OTHERS such sectionat a time whenthe PublicServiceCommission envisaged underArticle 125.1 of the Constitution was functioning they wouldhaveamounted to an unconstitutional course ofadministrative action: V. S. PLOUSSIOU (a) That an objection of unconstitutionality is considered 5 only
relation to the issue of the validity of the subject matter of the recourse and is decided solely for the purposes of the particular case; and that, accordingly,
the present case this Court does not have to decide about the possibility of validly applying section 15
relation to the state of the law as at the time when theywere made. (b) That
the present
stance the position, though not 15 exactly the same, is closely analogous to the one
Messaritou v. The Cyprus Broadcasting Corporation
stead of enacting a new Law (such as Law 61/70)
corporating the provisions contained
section 15
effect, rendered, by means of the combined effect of sections 2, 3 and 5 of Law 33/67,
evitably applicable the already existing section 15
the context of the prevailing juridical situation and which was entirely different from that which was prevailing at the time when Law 48/63was originallyenacted; that, thus, the onlypossiblecourse which was open to the Governor of the appellant Central Bank 30 (appellant 3), was to exercise the powers under section 15
order to make the sub judice appointments, which could not be made, at that time, either under Article 125.1 of the Constitution or under Law 33/67; and that such course was fully justifiable by the "law of necessity". 35 (d) That once that was so it cannot be said that,
the light of the "law of necessity", the said two appointments could have been made only on a temporary, and not on a permanent basis, because it was not the appointments as such which were made by virtue of the"law of necessity", but it wassection 15
respect of all appoint ments authorized by its provisions (see the Messaritoucase, supra, 145,146, which is referred to,
thisrespect,
theAnnual Survey of Commonwealth Law, 1972, p. 67). (losif v. The Cyprus Telecommunications Authority
question were promotions andassuch theywere outside theambitof thepowers of the Governor undersection15
the posts concerned were advertised
the Official Gazette it is clear that the said posts were not treated merely as promotion posts, but as first entry and pro motion posts, because, by means of the advertisement, applica tions for appointmenttheretowere
vited from persons outside the service of the Central Bank; and that,
any event, the term "appoint"
the context of section 15
clude the notion of "promotion" (see, also, section 10 of the Cyprus Broadcasting Corporation Law, Cap.300A, Maxwell On
terpretation of Statutes, 12th ed., p. 76 andΔεληκωστοπούλου, "Διοικητικόν Δίκαιον" Part A, pp. 130, 131).
the appeal has to be heard further so as to deal with the other issues, raised thereby, concerning the validity of such appointments. Per Hadjianastassiou, J.
his concurringjudgment:
view of its subject matter and of the surrounding circumstances with reference to which it was made, cannot take anything away from the competence of the Commission which was expressly referred to
.1 of the Constitution, but
my view it can only regulate the exercise of its competence. On this point, I find myself
agreement with the President of this Court when he said that it was not possible to vest validly
the Governor of the Central Bank thepowers set out
s. 15
a conflict of this kind between the existing law and the Constitution, the latter must prevail. D. THEODORIDES AND OTHERS
spite of the fact that section 15
legislating had to exercise its powers within the narrow limits laid down by the supreme law of the land, nevertheless, it is an arguable point that a statute which contravenes a provision of the Constitution does not ipso facto (that is to say without a judicial pronouncement to that effect) become void. v. S. PLOUSSIOU 5
following losif's case (supra), 10 misconceived or failed to discern the real principle enunciatedin that case, viz., that there was no legislation at all
force
November 1967 enabling the respondents (CYTA) to make the sub judice appointments, and that on the contrary,
the case
hand, Law 48/63—a post-Constitution law—was still 15 remaining on the statute book.
advance the judgment of the President of this Court, I regret I find myself unable to agree that the present case is closely analogous to the case of Messaritouand that it was possible by means of the combined effect 20 of ss. 2, 3 and 5 of Law 33/67, to
troduce or to revive the operation of s. 15
evitable necessity or exceptional circumstances; (
mind
concrete cases before me, that this very same point was raised
those recourses, that is to say, that section 15
spite ofmyobservations 30 that the bank authorities had to
troduce legislation—once the said law was born unconstitutional—no steps were taken to re-enact that section, as
fact wasthe case with the enactment of the Public Corporations (Regulation of Personnel Matters) Law, 1970 (Law 61/70)), which was enacted because the Public 35 Service Commission set up under the Constitution had ceased to exist and function; and because the Commission set up under Law 33/67 had no competence over the personnel of public corporations.
mind, and because of the long delay
completing these cases which
evitably have
terfered with the smooth running of the bank, I have decided—
spite of the difficulties and reservations I have made—not to dissent with the majority judgment. I would, therefore, declare that the subjudice appointments of the appellants 1and 2 should not have been annulled by the trial Judge
the circumstances of this case. 15 20 25 30 35 employees of the Central Bank, the authorities had the duty to take exceptional measures and not wait for such a long time to remedy that position. I have no hesitation, therefore,
reiterating that
those exceptional circumstances it was the duty of the bank authorities, through the legislative organ, to take all measures which were absolutely necessary and
dispensable for the normal and unobstructed administration of the bank for the duration of the necessity.
these circumstances, I have grave doubts whether those prerequisites to which I had referred earlier were or could be really satisfied before the doctrine of necessity could become applicable. _, Per A. Loizou, J.
his concurring judgment: This legislative measure which the Government
the exercise of its discretion,
the circumstances, adopted for the purpose of meeting the situation created by the fact that the Public Service Commission, empowered, to act under Article 125 of the Constitution, ceased to exist, does not
clude the Central Bank of Cyprus among the Public Authorities whose smooth function with regard to matters relating to their personnel was to regulate. As Government must, however, be deemed aware of the existence of section 15
the circumstances, superfluous for the Government to cover by Law 61/70 also the Central Bank. Appeals allowed. Cases referred to: - .. Lyssiotou v. Papasavva and Another
landRevenue Commissioners [1973] 2 AH E.R. 513 (affirmed on appeal [1975] I All E.R. 801); B. Surinder Singh Kanda v. Government of the Federation of Malaya [1962] A.C. 322; at pp. 332-335; 5 Bagdassarian v. The Electricity Authority of Cyprus andAnother
this Part at p. 124ante); HjiSavvasv. TheRepublic
terested parties to the post of Manager, Central Bank were annulled. K. TalarideSy for appellant 1(
Appeal No. 126). A. Triantafyllides with A. Moushiouttas, for appellant 2 35 (
Appeal No. 127). N. Charalambous, Counsel of the Republic, for appellant 3 (
Appeal No. 128). L. Clerideswith T. Eliadesand G. Chlorakiotist for the respondent. 40 Cur. adv. wit. 328 The following judgments were read:- < 5 TRIANTAFYLLIDES, P.: These three appeals were lodged against the Decision*of a Judge of this Court
recourse No. 108/70, which was made, under Article 146 of the Constitution, by the respondent
these appeals; by means of such Decision the appointments of appellants 1 and 2 to the post of Manager
the service of the Central Bank of Cyprus (appellant 3) were annulled. The said appointments were made by the Governor of appel10 lant 3 under the provisions of section 15
force for the time being and
accordance with regulations relating to the officers and employees of the Bank made under this Law, appoint, suspend or dismiss any officer or employee of the Bank other than officers or employees
respect of whom other provision is made
this Law''). The learned trial Judge found,
deciding on Preliminary legal issues, that the aboveprovision of Law 48/63 was uncon stitutional, as being contrary to Articles 122-125 of the Constitution, which provide about the setting up and functioning of the Public Service Commission; and that, consequently, the appointments of appellants 1 and 2, as made on the basis of such provision, were made contrary to the Constitution. Also, as the appointments were made on a permanent, and 35 not only on a temporary, basis, and as it was not shown that it was really necessary to make them on a permanent basis, the trial Judge held that their validity could not be saved by apply
g the "law of necessity". * Reported
the recourse) filed Appeal No. 128. V. S. PLOUSSIOU Triantafyllides, P. A procedural issue, which has been raised before us, and 5 which has to be dealt with first, is whether or not appellants 1 and 2 could appeal on their own against the Decision of the trial Judge: It has been argued,
this connection, by counsel for the respondent
these appeals, that such a course was not open to them, especially as they had been notified,
the usual 10 manner, to take part
the proceedings before the trial Judge— (if they so wished)—as "
terested parties", but they had failed to do so. The practice of allowing a person, to whom an administrative act or decision relates, to take part
the proceedings
a re- 15 course made by somebody else against such administrative act or decision is not governed directly,
Cyprus, by any specific enactment; it was first
itiated by the Supreme Constitutional Court, and was, subsequently, continued by the present Supreme Court
the course ofexercising the competence of the no longer 20 functioning Supreme Constitutional Court. As a result of standing directions made under rule 19 of the Supreme Constitutional Court Rules a person so affected—(who has come to be described as an "
terested party")—is notified that he is entitled to appear and apply for leave to take part
the pro- 25 ceedings
the recourse, for the protection of his own
terests, and, if he so appears, he is, as a rule, allowed to do so, either through counsel or
person, as he may wish. On many occasions
terested parties appear
order to state merely that they do not wish to take part
the proceedings on their own, 30 being conter.t to leave thematter
the hands of counsel appearing on L.half of the organ (the respondent
the recourse) which has made the sub judice administrative act or decision; or an
terested party may, even after service on him of the appropriate notice, choose not to appear at all, and this is taken to 35 signify that he does not wish to take part
the proceedings; and this is what was, actually, done on the present occasion by appellants 1 and 2. As regards appeals by
terested parties against a judgment given
a recourse there are two reported cases to which we 40 have been referred, namely Lyssiotou v. Papasavva and The Republic,
both such cases
terested parties did appeal, but no objection was raised concerning their right to do so; so the procedural issue nowbefore us was not decided then. It is to be observed that
the 5 Lyssiotoucase "the appellant-
terested party" had been allowed to, and did, take part
the proceedings at the trial (sec the relevant report
the Christodoulou case "the appellants-
terested parties" had chosen not to take part
thefirstinstance proceedings (see the 10 relevant report
Greecethe Council of Statedecided (see,for example,case 317/1955) that the notion of a "party",
the sense of the relevant legislative provision governing appeals from decisions
first
stance administrative Court proceedings (see section 42 15 of Law 3713 as reenacted by section 1of Law 4210), did not
clude an "
tervener"—(such as would be described an
terested partytaking part hereinthetrial ofa recourse)—and that, consequently, an
tervener could not appeal directly, and separately, on his own,though hecould
tervenein the proceed20
gs on appeal. •
France theposition seemsto be,byanalogy,that a person, who
Cyprus would bedescribed as an "
terested party"
a recourse, isentitled to appeal against the outcome ofan administrative recourse if he has taken part
the litigation at the first 25
stance level (see Odent's Contentieux Administratif, 19701971,vol.2,pp.627et seq.,aswellasthedecision bythe CouncilofStatein thecase ofHarenne on January 9,1959).
the light of all the foregoing I am of the view that since appellants 1and 2 chose not to take part
the proceedings at 30 thefirstinstancestagetheywerenot entitled,
thepresentcase, tofileindependent appeals of their own; as, however, the Decision given by thetrial Judge has been challenged on-appealby appellant 3(as the respondent
the recourse) I can see no difficulty
permitting appellants 1 and 2to take part
thepro35 ceedingsbefore us,for the protection oftheir owninterests. I shall deal, next, with the merits of the case:It has been argued by counsel for the appellants that section 15
fact happened
the present
stance. -τ; πβ r e i e V a n t constitutional provision is Article 125.1 which r e a d s a s f o ,iows:_ „ y "Επιφυλασσομένης πάσηςετέραςέντ φ Συντάγματιρητής 5 διατάΣεωςττερί οιουδήποτε τών Ιν τη τΓαρούση παρα/ράφω θεμάτων καΐ τηρουμένων των διατάξεωνοίουδήποτε νόμου, ή επιτροπή δημοσίας υπηρεσίας οφείλει να κατανέμητάς δημο σίας θέσεις μεταΕϋτών δύο κοινοτήτων καΐ νά διορίζη, μονιμοποιη, έντάσοτ) είς τήν δύναμιν τών μονίμων ή των δίκαιου- 10 μένωνσυντάϋεωςυπαλλήλων,προάγη, μεταθετή,καθιστςίσυν ταξιούχους δημοσίους υπαλλήλους καΐ νά άσκη πειθαρχικήν έίουσίαν έπ' αυτών, περιλαμβανομένωντης απολύσεως ή της απαλλαγής άπό τών καθηκόντων αυτών."
the Draft Constitution, which was signed at Nicosia on 15 April 6, 1960,
the Joint Constitutional Commission (see Article 149 of the Constitution), the above provision appears
English as follows :" 1. Save where other express provision is made
this Constitution with respect to any matter set out
this pa- 20 ragraph and subject to the provisions of any law, it shall be the duty of the Public Service Commission to make the allocation of public offices between the two Communities and to appoint, confirm, emplace on the permanent or pensionable establishment, promote, transfer, retire and 25 exercise disciplinary control over,
cluding dismissal or removal from office of, public officers". It is not
dispute that the post of Manager
the Central Bank is a "public office"
the sense of Article 125. 1; and it is useful to bear
mind that
Markoullides and The Republic, 30 3 R.S.C.C. 30, it was stated (at pp. 33, 34) t h a t " The combined effect of the definitions of 'public officer' and 'public service'
of the Constitution and of the provisions of paragraph 1 of Article 125 of the Con stitution lead to the conclusion that the Commission has 35 exclusive competence,
ter alia, to transfer employees of the Authority such as the Applicant or to dismiss them. The contrary view, however, has been propounded,
this connection,
view of the expression 'subject to the 332 5 10 15 provisions of any law'
paragraph 1 of Article 125,
whichthecompetence ofthe Commission issetout. It has been argued that because of an apparent conflict between the said paragraph and the provisions of section 10of the Electricity Development Law, Cap. 171,it is the Authority and not the Commission which is the competent organ to transfer employees of the Authority such as the Applicant or to dismiss them.
the opinion of the Court no conflict,
effect, arises between paragraph 1of Article 125and section 10of Cap. 171. Clearly Cap. 171 is a Law which has continued
force under, and subject to, theprovisions ofArticle 188of the Constitution. Under such Article 188,and
particular paragraph 3thereof, thecorresponding body of theRepublic which has to be substituted
Cap. 171for the Authority,
all matters falling within the competence of the Commission under paragraph 1 of Article 125,istheCommission ". So, the appellants' above submission would be,
my view, 20 bound tofail had thisbeenacasewhereitwasbeingallegedthat a matter within the Public Service Commission's competence, under Article 125.1, remained vested
some other organ by virtue of a Law existing beforethe coming
to operation,
1960, of the Constitution. 25 But, itisbeingcontended that theposition
the presentcase is distinguishable from that
the Markoullides case,supra, because the relevant powers of the Governor of the Central Bank, under section 15
him, by Law48/63, which is a Law enacted after 1960;and,
this respect, reliance is being placed on the words "subject to the provisions of any law"
For the meaning of the expression "subject to" reference has 35 been made,
teralia,to Smithv. London Transport Executive, [1951] AC. 555, and to C. &J. Clark Ltd v.
land Revenue Comrs, [1973] 2 All E.R. 513 (affirmed on appeal, [1975] 1All E.R. 801).
myview not much help can be derived from the above cases, because they relate to the effect of the expression 40 "subject to"whenit isbeingusedina statute
connection with 333 1976 Oct. 15 D. THEODORIDES AND OTHERS v. S. PLOUSSIOU Triantafyllides, P. 1976 Oct. 15 D. THEODORIDES AND OTHERS v. S. PLOUSSIOU Triantafyllides,P. other provisions of thesame enactment;
this respect Megarry J. stated
the Clark case, supra (at p. 520):"
my judgment, the phrase 'subject to' is a simple pro vision which merely subjects the provisions of the subject subsections to the provisions of the master subsections. Where there is no clash, the phrase does nothing: if there is collision, the phrase shows what is to prevail". 5 A much more relevant case is that of B. Surinder Singh Kanda v. Government of the Federation of Malaya, [1962] A.C. 322, where it was held (at pp. 332-335) that the words "subject to the 10 provisions of any existing law"
another organ.
the light of the foregoing I am of the opinion that, on a proper construction of Article 125.1 of our Constitution, it cannot be held that a Law enacted after 1960 can take anything away from the competenceof the Public Service Commission, as 20 set out
.1, but can only regulate the exercise, by the Commission, of the said competence;this conclusion is very much reinforced when Article 125. 1 is looked at
the context of the constitutional structure of which it forms part, and when it is borne
mind that the expression "subject t o "
125.1 corresponds to theword "τηρουμένων"
theGreek original text of Article 125. 1; therefore, even after Law 48/63 was enact ed it was still not possible for the Governor of the Central Bank to exercise validly any powers of appointment under section 15
existence and was exercising its relevant competence they would have to be annulled as having been made
the exercise of powers, by the Governor of the Central Bank,
a manner
consistent with the Constitution. As a matter of fact, however, such appointmentswere madein March 1970, and long before then the said Commission had 334 35 40 5 ceased to exist and to function as envisaged by Articles 122 to 125 of the Constitution. What was functioning
1970 was another organ,which though also described as a "Public Service Commission", it is really different from that set up under the Constitution
1960. This new Commission was set up under the Public Service Law, 1967 (Law 33/67).
section 2 of Law 33/67 the definition of "public service" is different from that
of the Constitution; this new 10 definition is as follows :- 15 20 25 " 'δημοσία υπηρεσία1 σημαίνει πασαν ύτταγομένην είς την Δημοκρατίαυ ύπηρεσίαν αλλην ή την δικαστικήν ύπηρεσίαν της Δημοκρατίας ή ύττηρεσίαν είς τάς 'Ενόπλους Δυνάμεις της Δημοκρατίας ή τάς Δυνάμεις 'Ασφαλείας της Δημοκρατίαςή" ύπηρεσίαν είς την θέσιν τοΰ Γενικού Είσαγγελέως της Δημο κρατίας ή τοΰ Γενικού 'Ελεγκτού ή τοΰ Γενικού Λογιστοΰ ή •τών Βοηθών αυτών ή ύττηρεσίαν έν οίαδήποτε θέσει ώς προς την οποίαν γίνεται διάφορος πρόνοια δια νόμου ή ύπηρεσίαν Οπό προσώπων τών οποίων ή αμοιβή υπολογίζεται επί ημερησίας βάσεως·". (" 'public service' means any service under the Republic other than the judicial service of the Republic or service
the Armed or Security Forces of the Republic or service
the office of Attorney-General of the Republic, or Audi tor-General or Accountant-General or their Deputies or service
any office
respect of which other provision is made by law or service by persons whose remuneration is calculated on a daily basis;"). Section 3 of Law 33/67 reads as follows :- 35 " 3. Τηρουμένων τών διατάΕεων τοΰ παρόντος Νόμου, ό παρών Νόμος εφαρμόζεται έπ! απάντων τών μελών της δημο σίας υπηρεσίας πλην εκείνων τά όποια δέν έμπίπτουσιν είς την δικαιοδοσίαντης Επιτροπής Δημοσίας Υπηρεσίας ή περί τών όποιων γίνεται διάφορος πρόνοια δυνάμει οίουδήποτε έτερου εκάστοτε εν ίσχύϊ νόμου." 40 ( " 3 . Subject to the provisions of this Law, this Law shall apply to all members of the public service except those who do not.come within the province of the Public Service Com• mission or for whom other provision is made under" any other law
force for the time being."). 30 335 1976 Oct. 15 D. THEODORIDES AND OTHERS v. S. PLOUSSIOU Triantafyllides, P. 1976 Oct. 15 D. THEODORIDES AND OTHERS v. S. PLOUSSIOU Triantafyllides, P. Also, section 5 of Law 33/67 reads as follows :"
this or any other law with respect to any matter set out
this section and subject to the provisions of this or any other law
force for the time being, it shall be the duty of the 15 Commission to appoint, confirm, emplace on the perman ent establishment, promote, transfer, second, retire and exercise disciplinary control over,
cluding dismissal or removal from office of, public officers." ). Law 33/67 had to be enacted, so as to set up under it a new 20 Public Service Commission, because the Public Service Com mission set up under the Constitution had ceased to exist as a result of the anomalous situation which resulted due to the
tercommunal rift which commenced
December, 1963, and which is, unfortunately, still continuing. The evolution which cul- 25 minated
the enactment of Law 33/67 is described
Bagdassarian v. The Electricity Authority of Cyprus and The Re public,
the meantime,due to the situation
the Island having 35 developed
such a way as to
terfere with the composition and functioning of the said Commission, The Public Service Cornmission (Temporary Provisions) Law, 1965 (Law 72/65) was enacted on the 16th December, 1965. There can be no doubt,
view of its context, that Law 72/65 was
tended 40 336 5 to legislate
relation to the Public Service Commission provided for under the Constitution; but, itwasapparently thought fit,
the circumstances, to restrict the membership of the Commission to five members,
cluding its Chairman. 10 On the 16th August, 1966, immediately after the expiration oftheterm ofoffice ofthemembersoftheCommission appointed onthe 16thAugust, 1960,therewerereappointed five members of the Commission; their new appointments were made under section 3 of Law 72/65. 15 20 25 30 35 40 Neither
the said section 3, nor
the
struments of appointment, anymention wasmade of theduration ofthe new appointments, but taking
to account the nature of Law 72/65 (
view particularly of its preamble) it may be assumed that the appointments made on the 16th August, 1966, were made pro tempore. Viewing the said appointments against their proper background one might be
clined, with good reason, to say that they were
tended to ensure somehow the continuance ofthefunctioning ofa Public Service Commission necessary for the exercise of the powers set out
June, 1967, Law 33/67was promulgated, repealing expressly Law 72/65; and on the very next day, on the 1st July, 1967, the same five members of the Public Service Commission, who were appointed on the 16th August, 1966, were given new appointments under section 4 of Law 33/67—the number of themembers of the 'Commission*,
cluding its Chairman, being five, under such section 4; by virtue of the same section the term of office of the members of the 'Commission', appointed thereunder, is six years.
viewof therepeal of Law 72/65by Law 33/67,and
view of the appointments made, as aforesaid, under section 4 of thelatter Law,Itaketheviewthat theearlier appointments of the same persons, which were made on the 16th August, 1966, under section 3of the former Law, must be taken as having been terminated (see, also, section 11 of The
terpretation Law, Cap. 1).
this case the Court is not concerned with the consti337 1976 Oct. 15 D. THEODORIDES AND OTHERS V. S. PLOUSSIOU Triantafyllides, P. 1976 Oct. 15 D. THEODORIDES AND OTHERS v. tutionality,
whole or
part, of Law 33/67, or of anything done under its provisions, this is a matter which I leave entirely open; and nothing which I say further on
this Decision should be taken as prejudging such issue of constitutionality one way or the other. 5 S. PLOUSSIOU Triantafyllides, P. Law 33/67 has no preamble explaining its purpose, like
the case of Law 72/65.
the long title of Law 33/67 reference is made to the functioning of the 'Public Service Commission', but not also to the creation of such a 'Commission*; yet section 4 of the Law does clearly provide for 10 the setting up of a 'Public Service Commission'; and
a manner which differs
some respects from the provisions of Article 124 of the Constitution. Moreover,
section 5 ofLaw33/67,whichlaysdownthe powers of the 'Commission' appointed under such Law, no 15 reference at all is made to Article 125 of the Constitution; and though the provisions of such section 5 are
many respects similar to the corresponding provisions
, nevertheless there arises the following most material, for thepurposes ofthepresentcase,difference: Byreading 20 section 5ofLaw33/67together withtherelevant definitions
section2 oftheLaw,and bycomparingthe position thus resulting with that which results when Article 125 is read together with the relevant definitions
,one is led
evitably to the conclusion that the 'Public Service 25 Commission' set up,as from the 1stJuly, 1967,under Law 33/67, possesses competence over members of the 'public service', which is defined
such Law
a manner not
cluding the personnel of the Authority, whereas under Article 125thePublicService Commission isentrusted with 30 competence over thepersonnel of the Authority,
viewof the definition of 'public service'
Law33/67,there wasnot
existenceaPublicServiceCommission empower- 35 edunderArticle 125 tomakesuchanappointment, butonly a 'Public Service Commission' set up under Law 33/67and not so empowered". Thequestion that hastobeanswered,next,
thepresentcase, is whether or not it must be held, by reading together sections 40 15
1970, the Commission which was set up under Law 33/67 was not empowered to make the sub judice appointments of appellants 1and 2, but that they ought to be made bythe Governor of theappellant Central Bank (appellant 5 3) under section 15
mind as being on 10 the statute book. It oughttobestressed,atthisstage,that Law48/63,notbeing an enactment which existed before the coming
to operation of theConstitution
1960,could notpossibly havebeentreatedas
validated by operation of Article 188of the Constitution, due 15 to anyconflict withArticle 125.1 ofthe Constitution; and until the enactment of Law 33/67—(or even until today)—there did not
tervene any judicial decision impugning the constitutionality, or otherwise the validity, of Law48/63; and it is useful to point out,
this connection, that "a statute which contravenes 20 a provision of the Constitution doesnot ipso facto (i.e.,without a judicial pronouncement to that effect) become void. It is only when it is declared to be void by a competent Court,
a regular proceeding, that the effects of the statute being unconstitutional are to take place". (SeeBasu's Commentary on the 25 Constitution of
dia, 5th ed., vol. 1,p.245). It is,therefore, right to conclude that Law48/63is oneof the special Laws envisaged by the definition of"public service"
section 2, as well as by the provisions of sections 3 and 5, of Law 33/67; and it follows that it was not
tended to vest, by 30 means of Law 33/67,
the Public Service Commission set up under it,thepower,under section 15
the service of appellant 3, such as those which are
volved
the present proceedings. ThisCourt isfaced, thus,with the position that whenthetwo 35 subjudice appointments—of appellants 1and 2—were made by the Governor of appellant 3, under section 15
view of the fact that had they been made under such section at a time when the Public Service Commission envisaged under Article 125.1 of the Con stitution was functioning they would have amounted—for the reasons explained earlier on
this judgment—to an unconsti tutional course of administrative action:
examining the above issue
the present proceedings we are not concerned
abstracto with the constitutionality, as 10 such, of section 15
proceed
gs
a recourse of this nature this Court,as an administrative Court, is not called upon to pronounce on the constitutionality 15 of a statute
order to declare it to be constitutional or uncon stitutional generally for all purposes, but it only has to examine the constitutionality of a statute, on which the subject matter administrative act or decision was based,
order to decide about the validity of such act or decision; thus, an "objection of 20 unconstitutionality" is considered only
relation to the issue of the validity of the subject matter of the recourse and is decided solely for the purposes of the particular case (see,
this con nection, Βλάχου" Ή"ΕρευνατηςΣυντσγμοττικότητος τώνΝόμων", 1954, ρ. 106, Σγουρίτσα " Συνταγματικόν Δίκαιον", 3rd ed., 25 1965, vol. A, p. 66, Burdeau "Traite De Science Politique", 2nd ed., vol. 4, p. 469). So,
the present case, we do not have to decide about the possibility of validly applying section 15
relation to the state of the law as at the time when they were made (see Lordou and Others v. The Republic,
Messaritou v. The CyprusBroadcastingCorporation,
relation to the PublicCorpo rations (Regulation of Personnel Matters) Law, 1970 (Law 61/70)—(which was enacted because the Public Service Commission set up under the Constitution had ceased to exist and fun- 340 40 ction, and because the Public Service Commission set up under Law 33/67 has no competence over the personnel of public corporations, such as the Cyprus Broadcasting Corporation)— it was held that Law 61/70 could be validly applied on the 5 strength of the "law of necessity" (as expounded
The Attorney-General oftheRepublicv.Ibrahimandothers, 1964 C.L.R. 195) for the purpose of making promotions.
the present
stance, the position though not exactly the same, is,
my opinion, closely analogous. The Legislature, 10
stead of enacting a new Law (such as Law 61/70)
corporating the provisions contained
section 15
effect, rendered, by means of the combined effect of sections 2, 3 and 5 of Law 33/67,
evitably applicable the already existing section 15
the context of the then prevailing juridical situation and which was entirely different from that which was prevailing at the time when Law 48/63 was originally enacted. Thus, the only possible course which was open to the Governor of the appellant Central Bank (appellant 3),was to exercise the powers 20 under section 15
order to make the subjudice appointments, which could not be made, at that time, either under Article 125.1 of the Constitution or under Law 33/67; and such course was,
my opinion, fully justifiable by the "law of necessity". 25 Once that was soit cannot be said that,
the light ofthe "law of necessity", the said two appointments could have been made only on a temporary, and not on a permanent basis; because it was not the appointments as such which were made by virtue of the "law of necessity", but it was section 15
respect of all appointments authorized by its provisions (see the Messaritou case, supra, 145, 146, which is referred to,
this respect,
the Annual Survey of Commonwealth Law, 1972, p. 67). 35
holding that permanent, and not merely temporary, appointments of appellants 1 and 2 could not be justified on the strength of the "law of necessity", because there was nothing before him to show that it was necessary to make them on a permanent basis, the trial Judge referred to losif v. The Cyprus 40 Telecommunications Authority,
deed, held that the making of two promotions on a per341 1976 Oct.15 D.THEODORIDES AND OTHERS v. S. PLOUSSIOU Triantafyllides,P. 1976 Oct.15 D.THEODORIDES ANDOTHERS v. S. PLOUSSIOU Triantafyllides, P. manent basis, and not only on a temporary basis, was not justifi able by virtue of the "law of necessity".
my view the said case is obviously distinguishable from the present one, because, as it appears from the judgment
that case (see pp. 230, 231), there existed no legislation, enacted after 5 1960, on the strength of which the respondent Authority
that case could have acted when making the permanent promotions challenged therein; the position was that the said promotions were made after the enactment of Law 33/67, but before the enactment of Law 61/70, and as the Public Service Commission 10 set up under Law 33/67 was not empowered to make such pro motions, the Board of the respondent Authority made them without legislative authorization and sought to justify its re levant ad hoc administrative action by relying on the "law of necessity"; it was held that
such a situation it had to be esta- 15 Wished by the respondent Authority that
the particular cir cumstances there was warranted,
the light of the criteria governing the application of the "law of necessity", the making of the promotions on a permanent, andnot only on a temporary, basis, and, as this was not established, the promotions were 20 annulled. Reference is made
thejudgment
the losif case, supra,to three earlier cases, Georghiades v. The Republic,
which the 25 particular administrative action taken concerning public officers, was held not to be justifiable,
the specific circumstances of each case, on the strength of the "law of necessity". But, again, all these three cases are distinguishable from the present one for exactly the same reasons as the losif case, namely that
all 30 those
stances there was no legislation—as there was
the present case (Law 48/63)—which became properly applicable by virtue of the "law of necessity" and under which the required administrative action could be taken. Another argument advanced against the validity of the sub 35 judice appointments was that,
any case, they could not have been made under section 15
question were,
effect, promotions and, so, according' 40 to the contention of counsel for the respondent, they were out side theambit of the powers of the Governor under section 15
the posts concerned were advertised
the Official Gazette (Not.24) on January 9, 1970; it is clear that the said posts were not treated merely as promotion posts, but as first entry and promotion posts, because, by means of the advertisement, applications for appointment thereto were
vited from persons outside the service of the Central Bank. 1976 Oct. 15 D. THEODORIDES AND OTHERS v. S. PLOUSSIOU But,
any event, I am of the view, that the term "appoint" Triantafyllides,
the context,of section 15
clude the notion of "promotion"; such term appears with the same wide 10 sense,
, for example, section 10 of the Cyprus Broadcasting Corporation Law, Cap. 300 A.
this connection it is useful to point out that
Maxwell on
terpretation of Statutes, 12th ed., p. 76, it is stated that:15 20 " The words of a statute, when there is doubt about their meaning, are to be understood
the sense
which they best harmonise with the subject of the enactment. Their meaning is found not so much
a strictly grammatical or etymological propriety of language, nor even
its popular use, as
the subject, or
the occasion on which they are used, and the object to be attained". Also,
Δεληκωστοπούλου "Διοικητικόν Δίκαιον" Part A, pp. 130, 131, it is stated that a statute has to be
terpreted
a manner which is
accord with its object. 25 30 For all the foregoing reasons I have reached the conclusion that the sub judice appointments of appellants 1 and 2 should not have been annulled, on the ground on which they were an nulled by the learned trial Judge, and that the recourse of the respondent
the appeal has to be heard further so as to deal with the other issues, raised thereby, concerning the validity of such appointments. L. Loizou, J.: I am
full agreement with thejudgment de livered by the President, which I had the advantage of reading
advance, and there is nothing that I can usefully add. 35 40 HADJIANASTASSIOU, J.:
these three appeals, which have been heard together by the Full Bench of the Supreme Court, under the -proviso to s. 11 of Law 33/64, the real question is two-fold: (a) whether the relevant provision of s. 15
evitably the act or decision of the Governor of the Central Bank
appointing 343 1976 Oct.15 D. THEODORIDES AND OTHERS v. S. PLOUSSIOU Hadjianastassiou, J. D. Theodorides and H. Achniotis to the post of Manager under the provisions of the aforesaid section of the law is unconstitutional because under the constitutional provisions, the appointing authority was the Public Service Commission. There is no doubt that the Governor of the Central Bank
5 making the appointments
the year 1970, challenged
Recourse No. 108/70 before one of the Judges of this Court, acted under the provisions of s. 15
force for the time 10 being and
accordance with regulations relating to the officers and employees of the Bank made under this Law, appoint, suspend or dismiss any officer or employee of the Bank other than officers or employees
respect of whom other provision is made
this Law." 15 As I said earlier, the power of the Governor to make those appointments was challenged by the applicant Mr. Ploussiou, who was alleging that
accordance with the provisions of Articles 122 and 125 of the Constitution, the proper authority for making appointments and/or promotions
the Central 20 Bank of Cyprus is the Public Service Commission and that it followed that section 15 of Law 48/63 which conferred similar powers upon the respondent was contrary to the said Articles of the Constitution. The learned trial Judge, having considered the contentions of 25 counsel on a preliminary issue of law—agreed by both counsel, delivered his reservedjudgment annulling the said appointments.
doing so, he relied on losif v. CYTA
these words:" It seems to me that, having regard to the very basis of the doctrine of necessity, the act sought to be justified by reference to it must be necessary not only
respect of its 35 nature but also
respect of its scope and extent. As there is nothing before me to show that the reason why the subject appointments or promotions were made on a permanent basis was that it was necessary so to make them, I hold that the subject decision must be annulled without 40 344 prejudice to thefillingof the posts on a temporary basis or even, if necessary, on a permanent basis." Themaincomplaint ofcounselonbehalfoftheappellantswas that thelearned trial Judge wrongly reached theconclusion that s. 15
enacting that lawitwaspossiblefor thelegislaturetotakecertain matters outside the competence of the Commission—set up under Article 124 of the Constitution, and that is what has actually happened
the case
hand; and (b) that such powers could 10 have been and were validly taken out of the competence of the Commission becauseLaw48/63wasenacted after 1960whenthe Constitution came
to force.
support of this contention, counselrelied onthe expresswords "subject to theprovisionsof any law" appearing
Re15 ference was also made to Smithv. London Transport Executive [1951]A.C.555at pp. 569-576;and to C. & J. ClarkLimitedv.
land Revenue Commissioners [1973] 2 All E.R. 513 at p. 520. It has not been disputed that service
the Central Bank is "public service" under Article 122,and I think that
the light 20 of this contention, I should turn to Article 125.1 which says that:- 25 30 " Save where other express provision is made
this Constitutionwithrespecttoanymattersetoutinthisparagraph and subject totheprovisionsofanylaw,itshallbetheduty of thePublicService Commission tomakethe allocation of publicoffices between thetwoCommunitiesand toappoint, confirm, emplace on the permanent or pensionable establishment, promote, transfer, retire and exercise disciplinary control over,
cluding dismissal or removal from office of, public officers." It appears to me that the manifest
tention of those constitutional provisions is that all those who hold any salaried office
the "public service" shall be appointed by the Commission. I think that I should state at the outset of whatIhave said
35 Sofroniou andOthers v. TheMunicipality of Nicosia and Others (reported
thisPart at p.124anteatp.143that"a writtenConstitution like any other written
strument affecting legal rights or obligations, falls to be construed
the light of its subject matter and of the surrounding circumstances with reference to 40 which it was made."
seeking to apply to the
terpretation of the Constitution of Cyprus what has beensaid
particular 345 1976 Oct. 15 D. THEODORIDES AND OTHERS v. S. PLOUSSIOU Hadjianastassiou, J. 1976 Oct. 15 D. THEODORIDES AND OTHERS v. S. PLOUSSIOU Hadjianastassiou, J. cases about other constitutions, care must be taken to distinguish betweenjudicialreasoning whichdepended ontheexpress words used
the particular Constitution under consideration and reasoningwhichdepended on what,though not expressed, isnon-the-less a necessary implication from the subject matter 5 and structure of the Constitution and the circumstances
which it has been made. Withthisinmind,Iturn toconsider thefirstcaseofMarkoullidesandTheRepublic,(P.S.C.) 3R.S.C.C. 30onthequestion of whether the Commission was the appropriate authority or the 10 Electricity Authority of Cyprus.
brief, the applicant was at all material times employed by the Electricity Authority of Cyprus as a clerk, 1st grade, and wasinformed by the Secretary of the Authority by a letter dated 2nd February 1961, that the authority had decided to transfer him to Kakopetria w.e.f. 1st 15 March, 1961. Upon the refusal of the applicant to obey the order of histransfer, thematter wasreferred bytheauthority to the Public Service Commission, which, having considered the matter, confirmed the transfer to Kakopetria. The applicant filed a recourse claimingthat thedecision wasnull and void and 20 the Supreme Constitutional Court had this to say at p. 33:" The combined effect of the definitions of 'public officer' and 'public service'
Constitution andof the provisions of paragraph 1 of Article 125 of the Constitution lead to the conclusion that the Commission has 25 exclusive competence,
teralia, to transfer employees of the Authority such as the Applicant or to dismiss them. The contrary view, however, has been propounded,
this connection,
view of the expression 'subject to the provisions of any law'
paragraph 1 of Article 125,
30 which thecompetence ofthe Commission issetout. It has been argued that because of an apparent conflict between the said paragraph and the provisions of section 10of the Electricity Development Law, Cap. 171,it is the Authority and not the Commission which is the competent organ to 35 transfer employees of the Authority such as the Applicant or to dismiss them.
the opinion of the Court no conflict,
effect, arises between paragraph 1of Article 125and section 10of Cap. 171. Clearly Cap. 171 is a Law which has continued
40 force under, and subject to, the provisions of Article 188 346 5 of the Constitution. Under such Article 188,and
particular paragraph 3thereof, the corresponding body of the Republic which has to be substituted
Cap. 171 for the Authority,
all matters falling within the competence of the Commission under paragraph 1 of Article 125, is the Commission and likewise, the Council of Ministers is,
this connection, to be substituted
Cap. 171 for the Governor or the Governor-
-Council." '
B. SurinderSinghKandav. Government of the Federa10 tion of Malaya, [1962] A.C. 322 (H.L.), the question was whether the words "subject to the provisions of any existing law"
another organ. Lord Denning, delivering the judgment of their Lordships said at p. 334:20 25 30 35 " It appears to their Lordships that,
view of the conflict between the existing law (as to the powers of the Commissioner of Police) and the provisions of the Constitution (astothedutiesofthePoliceServiceCommission)theYang di-Pertuan Agong could himself (under article 162
the existing law within thefirst two years after Merdeka Day. (The attention of their Lordships was drawn to modifications he had made
the existing law relating to the railway service and the prison service.) But the yang di-Pertuan Agong did not make any modifications
the powers of the Commissioner of Police, and it is too late for him now to do so.
these circumstances, their Lordships think it is necessary for the Court to do so under article 162
a conflict of this kind between the existing lawand the Constitution, the Constitution must prevail." This case was adopted and followed
HjiSavvas v. TheRe40 public(Council of Ministers),
the two different statutory provisions. Be that as it may,
the latter case, Clark (supra), Megarry, J.,
considering some of the subsections of s. 78 of the Finance Act, 1965, dealt with the contention of counsel, and said at p. 520:- 5 " When counsel's attention was drawn to the first words
s. 78
crease the frailty of his main contention. It was that whereas the
itial 'Subject to'
s. 78
sub-s
my judgment, the phrase 'subject to' is a simple provision which merely subjects the provisions of the subject subsections to the provisions of the master subsections. Where there is no clash, the phrase does nothing: if there is collision the phrase shows what is to prevail. The phrase 30 provides no warranty of universal collision. Where it appears
the opening words of s.78
my judgment, to demonstrate that sub-s
a more recent case, C. &J. Clark Ltd. v.
land Revenue 35 Commissioners, [1975] 1All E.R. 801,the decision of Megarry, J. was confiimed.
the light of thejudicial authorities, and having
mind the argument of counsel that the appointing powers were validly taken out of the competence of the Commission because Law 40 48/63 was enacted after 1960,1have reached the conclusion that 348 the-true construction of Article 125.1
view of its subject matter and of the surrounding circumstances with reference to which it was made, cannot take anything away from the competence of the Commission which was expressly referred to
5 Article 125.1 of the Constitution, but
my view it can only regulate the exercise of its competence. On this point, I find myself
agreement with the President of this Court when he said that it was not possible to vest validly
the Governor of the Central Bank the powers set out
s. 15
a conflict of this kind between the existing law and the Con* stitution, the latter must prevail. 15 20 25 30 35 40 But the fact remains that the sub judice appointments of appellants 1& 2havebeen effected bythe Governor at a time when the Commission set up originally under the Constitution was not functioning and had ceased to exist as provided by Articles 122125 of the Constitution.
trying to solve this problem, I find myself
this difficulty, that section 15
1970,one should carefully examine the possibility as to whether because of the law of necessity, and once a new Commission was created under Law 33/67, the said appointments were
effect valid, and that the said section 15
section 2 of Law 33/67 "Public Service" is defined
a different way than
of the Constitution, and perhaps it was made with the
tention to fit the present circumstances prevailing
Cyprus. See particularly ss.2, 3 and 5. Once therefore, the Commission, which was set up under the Constitution, ceased to exist and did not function since 1965, for reasons of necessity, I turn for guidance first to the case of Mustafa Ibrahim and Others, 1964 C.L.R. 195.
that case Josephides, J.,
expounding the principle of necessity said at pp. 257-258:" Judicial decisions
various countries have acknowledged that
abnormal conditions exceptional circumstances impose on those exercising the power of the State the duty to take exceptional measures for the salvation of the country on the strength of the above maxim." (Salus populi est suprema lex). 349 1976 Oct. 15 D. THEODORIDES AND OTHERS v. S. PLOUSSIOU Hadjianastassiou, J. 1976 ct * D. THEODORIDES AND OTHERS S. PLOUSSIOU Hadjianastassiou, J. Then, having dealt with the position
France, Italy, Germany and England, he turned to the position
Greece and said at Ρ* ^ol ·- " the principle of the law of necessity has been accepted both by the 'Arios Pagos' (the Supreme Court) and the 5 'Symvoulion Epikratias' (Conseil d' Etat). The 'Arios Pagos' has adopted this principle since 1919 (
case N o . 43 of 1919) and the Greek Conseil d' Etat has ruled
many cases since 1945 that
exceptional circumstances the right must be acknowledged to the Government to regulate by 10 legislation certain exceptional matters relating to the ac complishment of their mission, that is, the restoration of law and order and public security, 'by deviating from the constitution' (κατά παρέκκλιση» άττό τοΰ συντάγματος) 'if it is
dispensably and imperatively necessary and
e- 15 vitable' (see Conseil d' Etat case N o . 2/1945). The validity of these laws is subject to the searching control of the Con seil d' Etat regarding the nature of the necessity and the measures taken, because only
this way the supremacy of the constitutional provisions may be ensured (Case 68/1945; 20 and Professor Kyriakopoulos, 'Greek Administrative Law'
Greece is clearly defined
three decisions of the Conseil d' Etat, N o s . 2/1945, 13/1945 and 68/1945." Furthermore, he says at p. 264:"
the light of the principles of the law of necessity as applied
other countries and having regard to the pro visions of the constitution of the Republic of Cyprus (
cluding the provisions of Articles 179, 182, and 183), I
terpret our constitution to
clude the doctrine of necessity
exceptional circumstances, which is an implied exception to particular provisions of the constitution; and this
order to ensure the very existence of the State. The following prerequisites must be satisfied before this doctrine may become applicable: 25 30 35 (a) an imperative and
evitable necessity or except ional circumstances; (
arriving at the conclusion that
these exceptional circumstances it was the duty of the Government, through its legislative organ, to take all measures which were absolutely necessary and
dispensable for the normal and unobstructed administration of justice. I agree with the submission of respondent's counsel that the measures taken should be for the duration of the necessity and no more. This is also conceded by the learned Attorney-General of the Republic. The question now arises: Did the legislature do what was absolutely necessary
the circumstances or did it exceed it? Considering the 'recent events' as stated'
this judgment, and the provisions of sections 3
the subordinate courts by any Judge irrespective of community, I am of the view that the measures taken are warranted by the exceptional circumstances." I think that I should turn now to consider the authorities which deal with the powers of the Commission under the legislation
1965 and under the new Law 33/67.
Yervant Bagdassarian v. The Electricity Authority of Cy30 prus and Another,
section 5of Law 33/67,which lays down the powers of the 'Commission' appointed under such Law, no reference at all is made to Article 125 of the Constitution; and though the provisions of such section 5 are
many respects similar to the corresponding provisions
15 D. THEODORIDES AND OTHERS v. S. PLOUSSIOU Hadjianastassiou, J. Oct.15 D. THEODORIDES AND OTHERS v. S. PLOUSSIOU Hadjianastassiou, J. 125, nevertheless there arises the following most material, for the purposes ofthe present case,difference: By reading section 5 of Law 33/67 together with the relevant definitions
section 2ofthe Law, and by comparing the position thus resulting with that which results when Article 125 is 5 read together with the relevant definitions
, one is led
evitably to the conclusion that the 'Public Service Commission' set up, as from the 1st July, 1967, under Law 33/67, possesses competence over members of the 'public service', which is defined
such Law
a man- 10 ner not
cluding the personnel of the Authority, whereas under Article 125 the Public Service Commission is entrusted with competence over the personnel of the Authority,
view of the definition of 'public service'
. 15 It follows, therefore, that when the subjudice appointment was made, after the promulgation of Law 33/67, there was not
existence a Public Service Commission empowered under Article 125 to make such an appointment, but only a 'Public Service Commission' set up under 20 Law 33/67 and not so empowered. The next question to be answered is: was the Authority competent to make the said appointment?
this respect the argument has been advanced that,
the circumstances, it was so competent,
view of the doct- 25 rine of necessity and because of relevant provisions to be found
the specific legislation providing for the existence of the Authority—such provisions having not, admittedly, been operative, for the purpose, previously, before the enactment of Law 33/67 and while there was functioning a 30 Public Service Commission exercising the powers under Article 125
respect of the personnel of the Authority (see also Markoullides and The Republic, 3 R.S.C.C. 30, Stamatiou and The Electricity Authority of Cyprus, 3 R.S.C.C. 44). As the application of the doctrine of necessity
volves an examination of the special circumstances
relation to which it is being
voked, I find myself unable, on the basis of the material before me, as yet,
these proceedings, to decide whether or not the Authority had competence to 40 make the appointment
question." 352 35 Then heconcluded
these terms at p. 745:- 5 10 " Ontheother hand, itisclearthat oncethe'PublicService Commission', which was set up under Law 33/67, was not competent toact
thematter concerned, and once—
the light of what has already been stated
this Decision—at the material time no other Public Service Commission was
existence, this recourse cannot succeed as against Respondent2,
respect ofthedecision to appoint the
terested Party, or even
respect of an omission (as alleged by claim
the Serviceofthe Authority. This recourse, therefore, fails and isdismissed as regards Respondent 2."
the case of Papapantelis v. TheRepublic,
dealing with the question that the promotions were justified under the law of necessity, said at p. 519:- 20 25 " Idofail to seehow the 'law ofnecessity' could havewarranted themaking ofpermanent promotions totheexisting, at the time,vacancies
the post of Assistant Labour Officer; any urgent needsof the servicecould havebeenmetby temporary acting appointments and that is all that,
my view, could have been justified
the circumstances under the 'law of necessity', provided all the other prerequisites for its operation had also been satisfied, too.
the result, the decision to promote the
terested Parties to the post of Assistant Labour Officer is declared to be null and void and ofno effect whatsoever." AsI saidearlier, the trialJudge,
thecasein'hand,
reach30
g the conclusion that the law of necessity did not permit the Governor of the Bank to appoint or promote on a permanent basis the twointerested parties, relied on losifv. CYTA (supra). It appears that
that case the Board of CYTA made two permanent appointments to the post of Clerk-Supervisor, exerci35 sing their powers under s. 10
annullingthe saidsubjudice appointments
that case as being made
an
valid manner, had before him these two.questions:40 *" Firstly, that the-Respondent was entitled to take action, 353 1976 Oct. 15 D. THEODORIDES AND OTHERS J v. S. PLOUSSIOU Hadjianastassiou, J. Oct. 15 D. THEODORIDES AND OTHERS v. regarding the appointments
question, by virtue of the doctrine of necessity; and secondly, that the Respondent made the said appointments
the exercise of statutory powers to befound
the legislation providing for the existence and functioning of the Respondent." S. PLOUSSIOU Triantafyllides, J.,
answering first the second question, Hadjianastassiou, J. s a id at p. 230:- " The relevant legislation is the Telecommunications Service Law (Cap. 302), and particularly section 10
existence and functioning a Public Service Commission exercising, under Article 125, exclusively, powers regarding,
ter alia, the appointments of the officers and servants of the Respon- 25 dent, it was envisaged that the relevant appointments would be made by the Commission, and not by the Respondent. So,
fact, there was not
existence any legislation at all,
November, 1967, enabling the Respondent to make the subjudice appointments, as it has done." 30 Then, turning to the first question, that is to say the question of the doctrine of necessity, the learned Judge goes on:" A necessity which would go so far as to give legal validity to the relevant action taken by the Respondent
the present
stance ought to have amounted to a situation caused 35 by exceptional circumstances which could not be otherwise dealt with (see The Attorney-General v. Ibrahim, 1964 354 5 10 15 20 C.L.R. 195); and on the present occasion, even if one were to regard as a situation caused by exceptional circumstances the non-existence, after the promulgation of Law 33/67, of a Public Service Commission empowered to act under Article 125 as the appointing authority
relation to the staff of the Respondent, the obvious remedy, which ought first to have been urgently resorted to, was to draw the attention of the appropriate authorities of the Republic to the need to remedy the situation
such manner as they would deem best and
the meantime to take no steps other than measures of a temporary character, limited to the duration of the situation brought about by the except ional circumstances and proportionate thereto (see the Ibrahim case, supra)."" Finally, having quoted a number of authorities, and having particularly drawn attention to the Papapantelis case (supra) regarding the point of making permanent promotions, he con cludes
these words at p. 231:" Likewise
the circumstances of the present case I am not satisfied that the doctrime (or law) of necessity could have warranted the decision to promote the two
terested Parties to Clerks-Supervisors on a permanent basis, and not only on a temporary basis—if at all." Before leaving this case, I should have added that the learned 25 Judge proceeded to deal also with ss. 4 ά 5 of the Public Service Commission (Temporary Provisions) Law, 1965, and having left the question entirely open as to whether the appointments already made prior to the coming
to effect of s.4 of the said law should be deemed as having been made on the basis of its 30 provisions, nevertheless, he says at p. 234:" I have no difficulty
concluding that section 4 of Law 61/70 cannot apply
the present case so as to render valid the sub judice promotions. 35
the result, the recourse succeeds and the said promotions are annulled." 40
Messaritou v. The Cyprus BroadcastingCorporation,
the case
hand) which was decided under the provisions of Law 61/70, the qu estion before the learned trial Judge was the unconstitutionality of sections 2, 3 and 4 of the said law as being contrary to Arti355 1976 Oct. 15 D. THEODORIDES AND OTHERS v, S. PLOUSSIOU Hadjianastassiou, J. 1976 Oct. 15 D. THEODORIDES AND OTHERS cles 122 and 125. This case has been heard—all counsel having agreed—on the issue of unconstitutionality only.
this case the applicant was seeking the annulment of the promotion of the
terested party. v. S. PLOUSSIOU Hadjianastassiou, J. It was agreed by all counsel at the outset that this law could 5 be defended as being constitutional if its enactment was justified only by the law of necessity. The main complaint of counsel for the applicant was that it was not enough for the legislator to
voke the law of necessity. It was the duty of the Court to satisfy itself as to the necessity, and application of the doctrine 10 of necessity had to be examined
relation to the circumstances of the particular case
issue and on the material before it. He further argued that even if it was necessary to have a caretaking body, the subjudice promotion was not necessary to be made for the functioning of the respondent organization and, there- 15 fore, even if there was necessity for other functions, there was no necessity for this particular case.
fact, counsel
effect was raising the question that the measures taken by the sub judice provisions were wider than required to meet any necessity which may have existed. 20 A. Loizou, J.,
answering the question and having reviewed and distinguished Bagdassarian and losif cases(supra),as well as quoting certain passages from the three judgments delivered
the Ibrahim case (supra) on the question of law of necessity, said at p. 114:" I am satisfied that
enacting the law under consideration the Government obviously acted within the narrow limit of the discretion it possesses, regarding the appropriate measure to be adopted for the purpose of meeting such necessity.
stead of improvising new methods it was, to 30 my mind, reasonable to revert to the pre-existing state of affairs with the existence of a Joint Consultative Selection Committee
which both the Staff Trade Union and the Managerial side of the Respondent Corporation (see exhibit D attached to opposition) are represented. It cannot 35 be said that the measure taken iswider than what it should have been, or that itwas,
thecircumstances, unreasonable to entrust personnel matters to the Governing bodies of the three public authorities
such a temporary way as shown by the preamble of the law.
the light of all the above 40 the argument that sections 2, 3 and 4 of the Public Corpo356 25 rations (Regulation of Personnel Matters) Law of 1970are unconstitutional fails." Then, havingposed thequestion asto whethereach particular act done under the said lawshould beseparatelyjustified on the 5 ground of necessity, he concludes his judgment as follows:- 10 15 20 25 " I cannot agree with such a proposition as
examining the circumstances which I have found satisfied the requirementsofthedoctrineofnecessity,alltheprovisionsofthe law under consideration were considered and the pros and cons duly weighed
arriving at the conclusion that the scalehas tipped on the side of accepting thejustification of the enactment
view of the doctrine of necessity. It would havebeen too far fetched to saythat the lawisjustifiedon that doctrine but every appointment, promotion or disciplinary proceeding taken thereunder has to bejustified as coming, or not, within the doctrine of necessity. There cannot be such a distinction and what has been said
the case of Bagdassarian (supra)and losif (supra) about the temporary or permanent character of the sub judicedecisions
those two cases, cannot apply to the present case, as,
those cases, there was no enabling law, whereas,
the present case the subjudice promotion has been effected under the provisions of the said law.
my view," therefore, this second argument of learned counsel for the applicant must also fail." Having reviewedthe authorities at length, it seemsto me:that the learned Judge
following losifscase (supra), misconceived or failed to discern the real principle enunciated
that case, viz., that there was no legislation at all
force
November 30 1967 enabling the respondents (CYTA) to make the subjudice appointments, and that on the contrary,
the case
hand, Law 48/63—a post-Constitution law—was still remaining on the statute book. Iwould turn now to consider Law48/63. There isno doubt 35 that once Law 48/63 was a post-Constitutional law, one could not have taken the view that it could be treated as being
validated due to conflict with Article 125.1, by operation of - Article 188 of the Constitution—which is applicable only to pre-Constitution laws. But the question remains whether that 40 statute became ipsofacto void, once when it was enacted it-was
conflict with the Constitution.
spite of what I have-said 357 1976 Oct. 15 D. THEODORIDES AND OTHERS v. S. PLOUSSIOU Hadjianastassiou, J. 1976 Oct. 15 D. THEODORIDES AND OTHERS v. S. PLOUSSIOU Hadjianastassiou, J. earlier
thisjudgment that section 15
legislating had to exercise its powerswithin thenarrow limits laid downby the supreme law of the land, nevertheless, it is an arguable point that a statute which contravenes a provision of the Con- 5 stitution does not ipsofacto (that is to say without a judicial pronouncement to that effect) become void. It is only when it is declared to be void by a competent Court
a regular proceeding, that theeffects of theStatute beingunconstitutional are to take place. Thisview,I may add, ispreferred
the United 10 States of America and
dia. But I would add that evenin the United States, the law cannot be said to have been fully settled as to the consequences of a decision as to unconstitutionality of a statute as regards past transactions.
fact, Chief Justice Hughes, delivering the opinion of the Court
15 Chicot Co.Drainage Dist. v.Baxter State Bank, reported
84 Law. Ed. U.S. 329 said at pp. 332-333:"The Courts below have proceeded on the theory that the Act of Congress,havingbeen found to be unconstitutional, wasnot a law; that it wasinoperative, conferring no rights 20 and imposing no duties, and hence affording no basis for the challenged decree. Nortonv. Shelby County, 118 US 425,442,30Led 178, 1866SCt. 1121;Chicago, I. &L.R. Co. v.Hacket, 228US 559,566,57Led.966,969, 33SCt 581. It isquite clear, however, that such broad statements 25 as to the effect of a determination of unconstitutionality must be taken with qualifications. The actual existence of a statute, prior to such a determination, is an operative fact and may have consequences which cannot justly be ignored. The past cannot always be erased by a newju- 30 dicial declaration. The effect of the subsequent ruling as to
validity may have to be considered
various aspects, with respect to particular relations,
dividual and corporate, and particular conduct, private and official. Questions of rights claimed to have become vested, of status, of 35 prior determinations, deemed to have finality and acted upon accordingly, ofpublicpolicy
thelight ofthe nature both of the statute and of its previous application, demand examination. These questions are among the most difficult of thosewhichhave engaged the attention ofCourts, 40 state and federal, and it is manifest from numerous decisions that an all-
clusive statement of a principle of absolute retroactive
validity cannot be justified." 358 It appears that
the earlier cases and authorities, a logical view was taken, namely that a statute which was declared unconstitutional was a nullity ab
itio,
other words, the declaration related back and hit the statute from the moment of its 5 enactment. 1976 Oct. 15 D, THEODORIDES AND OTHERS v. S. PLOUSSIOU
Norton v. ShelbyCounty, 30Law. Ed.U.S.178it washeld that "There can beno officer, either defacto or dejure, if there be no office to fill. The apparent existence of an office created by an Act of the Legislature, which has been decided to be un10 constitutional, does not render it possible that there should be an officer defacto. An unconstitutional Act isin legal contemplation, as
operative as though it had never passed." It is to be added that the same principles apply when only a part of the statute is declared unconstitutional: seeCargill 15 Co.v. Minnesco, 45 Law. Ed. U.S. 179-182,619.
Australia, which has, like Cyprus also a written constitution,
South Australiav. The Commonwealth,
case of
consistency, the Commonwealth law prevails and the State law, to the extent of the
consistency, is
valid (sec.109). Common expressions, such as: 'The Courts have declared a statute
valid', sometimes lead to misunderstanding. A pretended law made
excess of power is not and never has been a law at all. Anybody
the country is entitled to disregard it. Naturally he will feel safer if he hasa decision ofaCourt
hisfavour—but such adecision is not an element which produces
validity
any law. The law is not valid until a Court pronounces against it— and thereafter
valid. If it is beyond power it is
valid ab
itio." See onthis subject Basu, Commentary on the Constitution of
dia, 5thedn.,Vol. 1 atp.245etseq.Furthermore,theposition
Greece on this very issue is expounded by Prof. Sgouritsas 40
his textbook on Constitutional Law,
thatparticular case only,but the declared unconstitutionalcontinuesto remain on thestatute book. He further added that this system prevails not only
5 the United States of America, but has been adopted
some other countries as well. I think I have said enough to show how difficult or thorny this point remains, and having not had the benefit of hearing argument on this particular issue—though Ifindtheproposition 10
Australia as the more realistic one,viz., that once it was un constitutional from thevery beginning noJudgmentof the Court was needed—nevertheless, I am not ready or
deed prepared to express a considered opinion on this issue. It is true thatin Cyprus theSupremeCourt,underArticle 146 15 of the Constitution, has exclusive jurisdiction to adjudicate finallyon a recourse made to it on a complaint that a decision, an act or omission of any organ, exercising any executive or administrative authority is contrary to any of the provisions of the Constitutionorof anylaw orismadeinexcessorinabuse of 20 powers vested
such organ or authority or person.
doing so, the Supreme Court has followed the decisions of theGreek Council of State, i.e. it examines the constitutionality of a sta tute onwhich theadministrative actwas based
ordertodecide about the validity of such decision; and the question of uncon- 25 stitutionality is considered only
relation to the issues raised
that recourse, and it is decided solely—as Prof. Sgouritsas put it
that particular case—only between the partiesconcern ed. Having voiced my difficulties and reservations
the sur- 30 rounding circumstances of this case, I return to the question whether thesaid appointmentswere validlymadebecause of the doctrine of necessity. Having taken the view that certain pre requisites must be satisfied before the doctrine of necessity may become applicable, I would add that thebank authorities had
35 mind
concretecases before me,that this very same point was raised
those recourses, that is to say, that section 15
spite of my observations that the bank authorities had to
troducelegislation—once the said law was born unconstitutional—no steps were taken to 40 re-enact that section, as
fact was thecase with the enactment of the Public Corporations (Regulation of Personnel Matters) 360 Law, 1970 (Law 61/70)), which was enacted because the Public Service Commission set up under the Constitution had ceased to exist and function; and because the Commission set up under Law 33/67 had no competence over the personnel of public cor5 porations. But the question remains whether these prerequisites are satisfied viz., (a) an imperative and
evitable necessity or exceptional circumstances; (
the Messaritou case, A. Loizou, J., reached a correct conclusion that
enacting Law 71/70 the legislature was acting within the narrow limits of the discretion it possessed for the purpose of meeting such necessity, and I find myself
full agreement with his elaborate judgment
15 that case. 20 25 30 35 40 Having also read
advance thejudgment of the President of this Court, I regret I find myself unable to agree that the present case is closely analogous to the case of Messaritou and that it was possible by means of the combined effect of ss.2, 3 and 5 of Law 33/67, to
troduce or to revive to operation of s. 15
my opinion, closely analogous. The Legislature,
stead of enacting a new Law (such as Law 61/70)
corporating the provisions contained
section 15
effect, rendered by means of the combined eifect of sections 2, 3 and 5 of Law 33/67,
evitably applicable the already existing section 15
the context of the then prevailing juridical situation and which was entirely different from that which was prevailing at the time when Law 48/63 was originally enacted. Thus, the only possible course which was open to the Governor of the appellant Central Bank (appellant 3),was to exercise the powers under section 15
order to make the subjudice appointments^ which could not be made, at that time, either under Article 125. 1 of the Constitution or under Law 33/67; and such course was,
my opinion, fully justifiable by the 'law of necessity.'" I think, once the Commission had no competence over the 361 1976 Oct. 15 D. THEODORIDES AND OTHERS v. S. PLOUSSIOU Hadjianastassiou, J. 1976 Oct. 15 D. THEODORIDES AND OTHERS v. S. PLOUSSIOU Hadjianastassiou, J. employees of the Central Bank, the authorities had the duty to take exceptional measures and not wait for such a long time to remedy that position. I have no hesitation, therefore,
reiterating that
those exceptional circumstances it was the duty of the bank authorities, through the legislative organ, to take all 5 measures which were absolutely necessary and
despensable for the normal and unobstructed administration of the bank for the duration of the necessity.
these circumstances, I have grave doubts whether those prerequisites to which I had referred earlier were or could be really satisfied before the doctrine of 10 necessity could become applicable. With this reservation
mind, and because of the long delay
completing these cases which
evitably have
terfered with the smooth running of the bank, I have decided—
spite of the difficulties and reservations I have made—not to dissent with 15 the majority judgment. I would, therefore, declare that the subjudice appointments of theappellants 1 and2shouldnot have been annulled by the trial Judge
the circumstances of this case. For the reasons I have endeavoured to advance, I would allow 20 the appeal. A. Loizou, J.: I also agree with the judgment delivered by the President which I had the opportunity of reading
advance. When the Public Corporations (Regulation of Personnel Matters) Law, 1970 (Law 61/70) was enacted, as a matter of 25 necessity,
order to fill the vacuum created by the circumstances referred to
its preamble, there existed on the Statute Book section 15
this case. 30 The enactment of Law 61/70 followed the decision
the case of Bagdassarian v. The Electricity Authority of Cyprus
losif v. The Cyprus Telecommunications Authority
that case was reserved. 35 This legislative measure which the Government
the exercise of its discretion,
the circumstances, adopted for the purpose of meeting the situation created by the fact that the Public Service Commission, empowered, to act under Article 125 of the Constitution, ceased to exist, does not
clude the Central Bank 40 362 of Cyprus among the Public Authorities whose smooth function with regard to mattersrelating to their personnel was to regulate. As Government must, however, be deemed aware of the exist ence of section 15
the circumstances, superfluous for the Government to cover by Law 61/70 also the Central Bank. ΙΟ 15 MALACHTOS, J.: I also agree with the judgment just deli vered by the President of the Court, which I had the advantage of reading
advance, and I have nothing to add. TRIANTAFYLLIDES, P.:
the result the first
stance decision appealed from is set aside and the recourse, out of which these proceedings on appeal have arisen, is fixed for further hearing, on the remaining issues, on December 2, 1976, at 3.45p.m. Appealsallowed. 363 1976 Oct. 15 D. THEODORIDES AND OTHERS v. S. PLOUSSIOU A. Loizou, J.
AI explanation based on the official legal text. Indicative, not a substitute for legal advice.