South Africa: High Courts - Gauteng Support SAFLII

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Tabok Derdepoort Ouerkommitee v Hoerskool FH Odendaal en 'n Ander (42199/2007) [2008] ZAGPHC 404 (12 December 2008)

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IN DIE HOOGGEREGSHOF VAN SUID AFRIKA

(TRANSVAALSE PROVINSIALE AFDELING)

         Saak nommer: 42199/2007
                                                      Datum: 12 Desember 2008
Not reportable





In die saak tussen:

TABOK DERDEPOORT OUERKOMMITEE    Eerste Applikant
                 
en
        
DIE HO RSKOOL – F.H. ODENDAAL     Eerste Respondent
DIE BEHEERLIGGAAM - HO RSKOOL     Tweede Respondent
F.H. ODENDAAL
UITSPRAAK
______________________________________________________________

PRETORIUS R,
In hierdie aansoek doen die applikant aansoek dat:
         “1.       “Dat die besluit van die tweede respondent in terme waarvan die            Taalbeleid van die eerste respondent gewysig word na Parallel             Meduim, tersyde gestel word;
2.      
         ‘n Bevel in terme waarvan die respondente gelas word om die      vakatures in die tweede respondent binne 14 (veertien) dae na    verlening van die bevel, te vul;
3.                ‘n Bevel in terme waarvan die respondente bevel word om die      inligting soos versoek deur die applikant, aangeheg in die       skrywes aangeheg as aahangsel “I” en “J” tot die funderende          be digde verklaring, sowel as uiteengesit in paragraaf 9 van die          funderende be digde verklaring, binne ‘n termyn van 14    (veertien) dae na verlening van die bevel, te verskaf.”

Die applikant is ‘n vrywillige ouerkomitee, ‘n vrywillige vereniging saamgstel uit ouers, leerders en oud-leerders van die Ho rskool F H Odendaal. Daar is geen aanduiding op die stukke hoeveel ouers en leerders en oud-leerders betrokke was by die stigting van die applikant nie. Dit blyk uit die notule van die ouerkomitee-vergadering van 25 Julie 06 dat daar ten minste 7 lede teenwoordig was, wat almal tot die komitee verkies is. Alhoewel daar ‘n teenwoordigheidslys op die vergardering was, volgens die notule, vorm dit nie deel van die hofstukke nie.

Op 23 Januarie 2007 is ‘n ouervergadering gehou op die perseel van Ho rskool FH Odendaal. Die applikant beweer dat dit ‘n dringende algemene vergadering was, terwyl die eerste en tweede respondente beweer dat dit ‘n spesiale dringende vergadering was.

Die persoon wat die antwoordende verklaring afgel het, is Mnr Malan. Hy is die hoof van die Ho rskool FH Odendaal en het names die eerste en tweede respondente sy verklaring afgel , terwyl hy ook ‘n lid van die tweede respondent, die beheerliggam is. Die Ho rskool FH Odendaal was ‘n Afrikaans mediumskool. Sedert 2004 het die getal leerlinge in die skool aanmerklik gedaal weens die feit dat die twee Afrikaans medium laerskole se getalle elke jaar gedaal het en beide oorgeslaan het na parallelmediumskole. In 2004 was daar 798 leerders en in 2007 523 leerders; ‘n afname van 275 leerders. Die daling in leerdergetalle het ‘n negatiewe impak op die finansi le toestand van die skool, asook ‘n verlies aan personeel en het tot gevolg dat 8 klasse leeg staan.

Reeds op die vergadering van 11 Oktober 2006 het die Beheerliggaam aandag geskenk aan die taalbeleid van die skool en as volg besluit:
“5.5      VOERTAAL van HO RSKOOL F.H. ODENDAAL
                  Die opsie om die voertaal van die skool te verander na                     parallelmedium word deur meneer Malan bespreek.

                  Die dilemma van die voedingsarea van die skool wat alreeds                verengels het, word geopper. Ouers en beheerliggaamlede word              versoek om daaroor te besin. Die saak sal weer op 31 Oktober              bespreek word.”


Op 31 Oktober 2006 word ‘n Beheerliggaam vergadering gehou. Die notule ten opsigte van die taalbeleid van die skool lees as volg:
         “12.5     Taalbeleid van Skool
                  Inskrywings vir 2007 is soveel minder as as die van verlede jaar                 dat daar ‘n gevaar bestaan dat drie onderwysers nie aangestel             sal kan word nie. Al teenvoeter vir die huidige daling in getalle,                sal wees om die skool se taalbeleid na parallelmedium te                           verander. Die onderwysers is op hierdie stadium gladnie                            negatief oor so ‘n moontlikheid nie.

                  Indien besluit sou word om na parralelmedium oor te skakel, sou                   die ideaal wees om die dertig bestes uit die engelse aansoeke             wat ontvang word, te keur. Dit sal verseker dat ons goeie                          inskrywings in Engels sal kan doen.

                  Ouers sal in kennis gestel word van ‘n Spesiale Algemene                           Vergadering sodra daar hieroor ‘n besluit geneem word.”

Op 15 Januarie 2007 word ‘n dringende spesiale Beheerliggaam vergadering gehou. Onder die opskrif “VOERTAAL” word die volgende uiteengesit:
         “4.       VOERTAAL
                           4.1      Algemene inligting deur Hoof verskaf:
                           A.       INLIGTING: LEERDERS / PERSONEEL
                                    Aantal leerders ingeskryf                                   :500
                                    Aantal personeellede deur die staat betaal       :20
                                    Beheerliggaamposte                                  :4
-       
Die skool het in 2006 twee onderwysposte verloor omdat die leerdergetalle gedaal het.
-        Die skool gaan in 2007 (April) ongeveer drie poste verloor.
-        Die sewentien oorblywende personeellede kan nie al die vakke aanbied nie.
B.      
FINANSIES
-       
500 Leerders
-        Aansoek vir kwytskelding/vermindering van skoolgeld: 210
-        Berekening
Leerders         :500 x R4000              =        R2,000,000
                                    Aansoeke         :R210 x R3000   =        R 630,000
                                                                                          R 1,370,000
                                    Salarisse        :R369 460
                                    Lone              :R179,020        R548 480

                                    Munisipale fooi  :        R144 000
                                    Telefoon                  :        R 40 867
                                    Versekering               :        R 45 000
                                    Vervoer           :        R 46 000
                                    Aftrekorders              :        R 14 000
                                                                        R838 347
C.      
INSKRYWINGS
         2000     :        851
         2001     :        795
         2002     :        776
         2003     :        765
         2004     :        798
         2005     :        733
         2006     :        623
         2007     :        500

D.      
LAERSKOLE: GRAAD 7 – 2007: TANS
         Derdepoort       :        73
         Lindopark        :        30 Afrikaans
                                                               80 Engels
                                                               183
E.      
LAERSKOLE: LEERDERS INGESKRYF IN 2007
         Derdepoort       :        49 het na ons gekom (Hulle het 115                                  leerders gehad
         Lindopark        :        14 het na ons gekom (Hulle het 46                                   leerders gehad
         Eersterust       :        3
         Ander             :        31 het na ons gekom

         Lindopark is tans parallelmedium en kan hul leerders dus         na ons skool kom – anders verloor ons hulle.
        
         Meneer Schmidt reageer deur te meld dat hy verlede jaar          met die Departement in kontak was en dat die     Departement meer betrokke wil raak by ons skool. Die     hoof noem dat die onderwusers heeltemal tevrede is met   hierdie besluit.”

Dit is duidelik uit hierdie notule dat:
         “BESLUIT
                  Die bestuurliggaam keur dit goed dat die skool vanaf 2008                          parallelmedium sal word. Indien leerders gedurende 2007 reeds             daarin belangstel om hierdie skool by te woon, sal hulle aanvaar                  word.

                  Ouers sal kennis kry van die vergadering wat gehou sal word op            23 Januarie 2007. Punte op die agenda sal wees;
         1.       Kwytskelding / vermindering van skoolgeld
                                    2.       Voertaal van skool”

Op 23 Januarie 2007 is ‘n spesiale dringende algemene vergadering vir die ouers bel . Hierdie vergadering is bel om die ouers in te lig van die besluit van die Beheerliggaam ten opsigte van die taalbeleid. Mnr Malan, die skoolhoof het by hierdie ouervergadering as segsman opgetree om die outers in te lig van die Beheerliggaam se besluit. Op hierdie vergadering was 67 ouers teenwoordig.

Die applikant beweer dat daar op die vergadering van 23 Januarie 2007 besluit is om binne 2 weke weer ‘n vergadering te bel . Dit word deur die Respondent ontken. Die omsendbrief wat op 13 Maart 2007 uitgestuur is deur die skoolhoof ondersteun die respondente se weergawe dat daar geen re lings was vir ‘n tweede vergadering nie. Die omsendbrief van 13 Maart 2007 sit dit uiteen dat:
         “TAALBELEID
         Die taalbeleid van die skool is deur die Beheerliggaam verander na       parallelmedium. Die redes vir die besluit is op oueraand van 23          Januarie 2007 aan die ouers deurgegee.

         REDES:
-       
Die leerdergetalle daal elke jaar. In 2004 was daar 798 leerders in die skool. Tans (2007) is daar 523 leerders in die skool. Daar is agt le klaskamers in die skool;
-        Die onderwysers verminder elke jaar, as gevolg van die daling in die leerder getalle;
-        Die getalle van die twee omliggende voedingslaerskole se Afrikaans-sprekende leerders daal;
-        Beide die voedingslaerskole is reeds parallelmedium;
-        Ons genereer nie genoeg skollgeld met die min leerders om al die verpligtinge na te kom nie.
         Parallelmedium beteken afsonderlike klasse vir Afrikaans- en     Engelsprekende leerders. Die eerste Engelsprekende leerders sal in       2008 in Graad 8 ingeskryf word.”

Op 22 Maart 2007 rig die applikant ‘n skrywe aan die tweede respondente. Uit die skrywe blyk dit dat daar reeds in 2004 ‘n poging was om die Ho rskool FH Odendaal te omskep in ‘n parallelmedium skool. Dit is egter teen gestaan deur die destydse Beheerliggaam en is dit buite die hof geskik. Dit is in teenstelling met die huidige posisie weer die Beheerliggaam die vergadering ten opsigte van taalbeleid aangebring het.

Artikel 6(2) van die Suid-Afrikaanse Skolewet 84 van 2006 bepaal:
         “Die beheerliggaam van 'n openbare skool kan die taalbeleid van die       skool bepaal, behoudens die Grondwet , hierdie Wet en enige      toepaslike provinsiale wet.”

In Laerskool Middelburg en ‘n Ander v Departementshoof, Mpumalanga Department van Onderwys, en Andere 2003(4) SA 160(T) het die feite wesenlik verskil van die huidige situasie. Daar is ‘n besluit geneem deur die Departement van Onderwys om Engelse leerders in te skryf by die skool – dit is gedoen in terme van artikel 6(1) van die Wet. Hier het die Beheerliggaam die besluit geneem. In terme van artikel 6(1) van die Wet het die Minister van Onderwys norme en standaarde met betrekking tot skole se taalbeleid gepubliseer in staatskoerant 18546 van 19 Desember 1997. Die applikant het die argument laat vaar dat die Beheerliggaam nie behoorlik gekonstitueer was, toe die besluit om die taalbeleid verander is geneem is nie. Die Hof hoef derhalwe nie daarmee te handel en enige opsig nie.

Die respondente se eerste argument is dat die applikant nie locus standi het om die aansoek te bring nie. Dit word uitgewys dat die Beheerliggaam bestaan uit, onder andere, ouers van leerders van die skool. Die ouers verteenwoordig die meerderheid van die Beheerliggaam. Die ouwers word op ‘n demokratiese wyse getuies deur die ouers van die leerders van die skool, om hulle te verteenwoordig. In UDM v The President of the RSA (ADP Intervening; IDASA and Another, Amici Curiae) [2002] ZACC 21; 2003 (1) SA 495 (CC) het die hof bevind par 31:
         “[31] There is a tension between the expectation of voters and the        conduct of members elected to represent them. Once elected, members      of the Legislature are free to take decisions, and are not ordinarily liable     to be recalled by voters if the decisions taken are contrary to          commitments made during the election campaign.”

Hierdie bevinding behoort ook toepassing te vind in die huidige situasie, veral waar daar geen aanduiding deur die applikant is hoeveel ouers die applikant steun nie. Die Beheerliggaam is ‘n gekose liggaam deur die ouers om die leerders en ouers se belange te behartig en te beskerm. Regulasie 39(2) bepaal dat in quorum van die Beheerliggaam sal 50% en 1 van die lede wees om in stemming geldig te maak.

Uit die notule van 15 Januarie 2007 blyk dit daar 13 lede op die Beheerliggaam is en dat 9 lede teenwoordig was toe die taalbeleid verander is.

Die applikant se ontkenning van die getal leerders, kan die hof nie aanvaar nie. Dit is immers die hoof van die skool wat die eedsverklaring afl en kan die hof nie anders as om sy verklaring ten opsigte van die getal leerders te aanvaar nie. Daar word ook geensins enige voorsiening gemaak dat die Beheerliggaam die ouers moet ken voordat s ‘n besluit geneem word nie. Trouens, dit is sekerlik die rede waarom sekere ouers as verteenwoordigers van die ouers op ‘n demokratiese wyse op die Beheerliggaam verkies word.

As die hof die notule van die Beheerliggaamsvergadering van 15 Januarie 2007 nagaan, is dit duidelik dat die ouervergadering van 23 Januarie 2007 bel is om die ouers in te lig ten opsigte van die taalbeleid en nie, soos die applikante beweer, om hulle mening te bekom alvorens ‘n besluit geneem word nie.

In Buto Star Fishing (Pty) Ltd v Minister of Environmental Affairs and Tourism [2004] ZACC 15; 2004 (4) SA 490 (CC) te par 46-47 bevind die Konstitutsionele Hof:        “[46] In the SCA Schutz JA held that this was a case which calls for      judicial deference. In explaining deference, he cited with approval      Professor Hoexter's account as follows:
                  '(A) judicial willingness to appreciate the legitimate and                         constitutionally-ordained province of administrative agencies; to                 admit the expertise of those agencies in policy-laden or                           polycentric issues; to accord their interpretation of fact and law                due respect; and to be sensitive in general to the interests                       legitimately pursued by administrative bodies and the practical                   and financial constraints under which they operate. This type of                  deference is perfectly consistent with a concern for individual                   rights and a refusal to tolerate corruption and maladministration.                It ought to be shaped not by an unwillingness to scrutinise                        administrative action, but by a careful weighing up of the need                   for - and the consequences of - judicial intervention. Above all, it              ought to be shaped by a conscious determination not to usurp              the functions of administrative agencies; not to cross over from                  review to appeal.'
         (Footnote omitted.) Schutz JA continues to say that ' (j) udicial deference      does not imply judicial timidity or an unreadiness to perform the judicial       function'. I agree. The use of the word 'deference' may give rise to     misunderstanding as to the true function of a review Court. This can be          avoided if it is realised that the need for Courts to treat decision-makers      with appropriate deference or respect flows not from judicial courtesy or        etiquette but from the fundamental constitutional principle of the       separation of powers itself.”

Indien die Beheerliggaam ‘n besluit neem en voldoen aan die bepalings van die wette en regulasies van toepassing, en in die openbare belang, dank an die besluit nie hersien word nie. Die applikant heg ‘n dokument van die SA Stigting vir onderwys en opleiding. Dit is duidelik dat hierdie dokument nie ‘n beleid daarstel wat deur die Departement van Onderwys of die Beheerliggaam aanvaar is nie en kan dit nie in hierdie geval as riglyn dien nie.

Ek is van oordeel dat die hof nie die besluit van die Beheerliggaam kan hersien nie, aangesien die besluit op ‘n behoorlike, regmatige wyse geneem is deur die Beheerliggaam wat deur die ouers op ‘n demokratiese wyse verkies is.

Artikel 5 (5) van die wet bepaal:
         “(5)      Behoudens hierdie Wet en enige toepaslike provinsiale wet                          word     die toelatingsbeleid van 'n openbare skool deur die                        beheerliggaam van        sodanige skool bepaal.”

In Minister of Education, Western Cape v Governing Body, Mikro Primary School 2006(1) SA 1 (SCA) het Streicher AR bevind:
         “[22] The first respondent is, insofar as the determination of a language         and admission policy is concerned, not subject to executive control at the       national, provincial or local level and can therefore, like the Electoral        Commission, insofar as the performance of those functions is     concerned, not be said to form part of any sphere of government. For the         same reason, its dispute with the first and second appellants in respect         of the language and admission policy determined by it, is not an         intergovernmental dispute as contemplated in s 41(3) of the Constitution.        The argument based on s 41 of the Constitution was therefore correctly   rejected by the Court a quo.”

Dit behoort ook hier van toepassing te wees aangesien die besluit nie onderhewig is aan die goedkeuring van die ouers wat nie op die Beheerliggaam is nie. Die bewering van die applikant dat die besluit deur die leerders en ouers as geheel goedgekeur moet word kondus ook nie waterhou nie.

Die aansoek vir toegang tot inligting handel met redes vir die besluit. Dit is egter duidelik dat die omsendskrywe van Maart 2007 die redes vir die besluit duidelik uiteengesit het. Die applikant dui nie enigsins ‘n rede vir versoek vir die inligting en watter regte beoog beskerm te word nie.

Die applikant he took nie voldoen aan aartikel 18 van die Promotion of Access to Information Act nie. Artikel 18 bepaal:
         “(1)      A request for access must be made in the prescribed form to the                   information officer of the public body concerned at his or her                     address or fax number or electronic mail address.

         (2)      The form for a request of access prescribed for the purposes of                   subsection (1) must at least require the requester concerned-
                  (a)      to provide sufficient particulars to enable an official of the                     public body concerned to identify-
                                    (i) the record or records requested; and
                                    (ii) the requester;
                  (b)      to indicate which applicable form of access referred to in                         section 29 (2) is required;
                  (c)      to state whether the record concerned is preferred in a                            particular language;
                  (d)      to specify a postal address or fax number of the requester                         in the Republic;
                  (e)      if, in addition to a written reply, the requester wishes to be                     informed of the decision on the request in any other                                manner, to state that manner and the necessary                              particulars to be so informed; and
                  (f)      if the request is made on behalf of a person, to submit                            proof of the capacity in which the requester is making the                         request, to the reasonable satisfaction of the information                         officer.

         (3)      (a)      An individual who because of illiteracy or a disability is                         unable to make a request for access to a record of a                                public body in accordance with subsection (1), may make                            that request orally.

                  (b)      The information officer of that body must reduce that oral                         request to writing in the prescribed form and provide a                            copy thereof to the requester.”
.
Dit word erken deur die applikant se regsverteenwoordiger, Mnr van Rensburg.

Dit is duidelik dat die skool geldige redes vir die verandering van die taalbeleid uiteengesit het in die omsendskrywe gedateer 13/3/07 en geldige redes gehad het vir die verandering. In hierdie geval het die applikant ook nie aangedui watter ouers hulle verteenwoordig nie. Daar word geen getalle genome nie en kan die hof nie die afleiding maak dat dit ‘n waardige getal ouers van leerlinge is nie. Die hof moet egter kennis neem dat die Beheerliggaam deur die ouers op ‘n demokratiese wyse verkies is en aanvoer dat die Beheerliggaam die verteenwoordiger van die ouers is.

Daar is ook geen basis vir die applikant se argument dat daar openbare vergaderings gehou moes word om die taalbeleid te bespreek nie. Trouens, alle ouers is geregtig om Beheerliggaam vergaderings by te woon te alle tye – dit het die ouers nie gedoen nie.

In die Banto Star saak (supra) par 46 bevind die Konstitusionele Hof:
REGTER REEDS AANGEHAAL KYK BLADSY 9

Die vraag wat hierdie hof moet vra en antwoord om die besluit van die Beheerliggaam tersyde te stel, is of die besluit s onredelik is dat geen redelike Beheerliggaam s ‘n besluit te neem. Hier is dit duidelik dat al die geite tot die beskikking van die Beheerliggaam was om so ‘n besluit te neem. Ek kan nie bevind dat die besluit so onredelik was dat dit tersyde gestel moet word nie.

Na aanleiding van Mnr van Rensburg se toegewing dat daar nie aan die beplaings van die PAJA voldoen is nie, kan die hof ook nie voldoen aan die versoek om inligting nie.

Ek maak die volgende bevel:
         Die aansoek van die hand gewys met koste; insluitend die koste van       twee advokate.




______________________
C Pretorius
Regter van die Hooggeregshof

Saak nommer                        :        42199/2007
Gehoor op                                   :        3 Desember 2008
Vir die Applikant                          :        Adv E Janse van Rensburg
Opdrag deur                                 :        Marius Viljoen
Vir die Respondente               :        Adv BR Tokota SC
                                             :        Adv DT Skosana
Opdrag deur                                 :        Staatsprokureur
Datum van Uitspraak                        : 12 Desember 2008