THE LABOUR APPEAL COURT OF SOUTH AFRICA, DURBAN
Not Reportable
Case no: DA 04/2023
In the matter between:
THE NATIONAL COMMISSIONER: DEPARTMENT OF
CORRECTIONAL SERVICES Appellant
and
MNIK WELWA NXELE First Respondent
ADVOCATE HASSIM SC N.O. Second Respondent
Heard: 15 November 2024
Delivered: 17 February 2025
Coram: Savage ADJP, Van Niekerk JA and Govindjee AJA
JUDGMENT
SAVAGE, ADJP
Introduction
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[1] In 2018, t he respondent, Mr Mnikwelwa Nxele, an employee of the
Department of Correctional Services (DCS), made a protected disclosure against the
then- National Commissioner of the DCS, Mr Arthur Fraser. Since then, the parties
have been engaged in protracted litigation. Before this Court is an appeal , with the
leave of the Labour Court, against that Court ’s order that the appellant convert a
second disciplinary enquiry instituted against Mr Nxele into one under section
188A(11) of the Labour Relations Act1 (LRA) ; and its finding that Mr Nxele’s
suspension in February 2022 had lapsed in that the appellant had failed to hold the
disciplinary enquiry within 60 days of his suspension, as prescribed in the Senior
Management Services (SMS) Handbook of DCS.
[2] At the outset of the hearing, the appellant sought the reinstatement of the
appeal and condonation for a one- month delay in filing the notice of appeal and a
ten-day in filing the record of appeal . These applications were not opposed and,
having regard to the extent of the delay, the prospect of success , the limited
prejudice caused and the interests of justice, the applications are granted.
Background
[3] The disclosure made by Mr Nxele against Mr Fraser in 2018 was found on 10
October 2019 by the Public Service Commission (PSC) to constitute a protected
disclosure as defined in the Protected Disclosures Act
2 (PDA). Mr Nxele was found
to have been subjected to an occupational detriment as defined in the PDA following such disclosure given that the appellant admitted that disciplinary charges instituted against Mr Nxele thereafter related to the complaint lodged with the PSC.
Consequently , his first disciplinary hearing was converted into an inquiry in terms of
section 188A(11).
[4] The ensuing section 188A(11) inquiry found that Mr Nxele had not committed
the misconduct alleged , save for one alternate count in respect of which a written
warning was imposed. His suspension was uplifted and Mr Nxele was directed to
report for duty on 14 February 2022. In response, t he appellant informed Mr Nxele
1 Act 66 of 1995, as amended.
2 Act 26 of 2000, as amended.
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that his suspension would remain in force pending a review of the outcome of the
section 188A(11) inquiry and that if he failed or refused to accept as much , the DCS
would approach the Labour Court to obtain a restraining order against him . Mr Nxele
indicated that he would return to work as per the outcome of the inquiry . On 13
February 2022, the appellant instituted urgent proceedings in the Labour Court to
interdict him from returning to work.
[5] The following day , members of the DCS National Emergency Response Team
prevented Mr Nxele from entering the DCS premises on his arrival at work . On 23
February 2022, the Labour Court dismissed the appellant’s urgent application. Prior
to this, on 22 February 2022, Mr Nxele was notified of the appellant’s intention to
place him on precautionary suspension. On 28 February 2022, he was placed on
precautionary suspension pending the finalisation of an investigation into his attempt
to report for duty on 14 February 2022. On 28 March 2022, Mr Nxele referred an
unfair labour practice dispute challenging the fairness of his suspension to the
General Public Service Sectoral Bargaining Council (GPSSBC) .
[6] On 5 May 2022, he was given notice to attend a disciplinary hearing from 24
to 27 May 2022 in relation to a number of charges, six of which pertained to his
attempt to report for duty in February 2022. In addition, Mr Nxele was charged with
having addressed a letter to the Minister of Justice and Correctional Services on 11 February 2022 and the Deputy Minister of Correctional Services on other occasions regarding the conduct of the appellant. On 17 May 2022, Mr Nxele approached the
Labour Court seeking that it order that the disciplinary hearing scheduled to be held
against him be converted into a hearing in terms of section 188A(11) of the LRA ,
together with an order that his suspension had lapsed since 60 days had elapsed
since he had been suspended.
Judgment of the Labour Court
[7] The Labour Court rejected the appellant ’s contention that Mr Nxele’s
suspension was lis alibi pendens in that the fairness of his suspension remained
pending before the GPSSBC and that the application before the Labour Court
originated from the same subject matter, concerned the same parties and related to
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the same cause of action as the suspension issue before the GPSS BC. The Court
found that the GPSSBC was tasked with determining the fairness of Mr Nxele’s
suspension, while the Labour Court was required to consider its lawfulness. Since the causes of action were not the same, the requirement of a successful plea of lis alibi pendens had not been met . The continued suspension of Mr Nxele was
therefore found to be unlawful and was set aside.
[8] Noting that it was common cause that Mr Nxele had made a protected
disclo sure against Mr Fraser in 2018, the Labour Court found that the appellant had
contravened the PDA in institut ing disciplinary proceedings against him in May 2022.
This was so in that , from an objective consideration of the facts , a nexus exist ed
between the protected disclosure made and the disciplinary charges instituted. In
2020, the chairperson of the first disciplinary hearing found that Mr Nxele believed in
good faith that the charges were in contravention of the PDA; after the outcome of
the section 188A(11) inquiry on 7 February 2022, Mr Nxele was advised that his
presence at the workplace was unwanted; on 13 February 2022 he was served with
an application to review the award and to interdict his return to work; on 14 February 2022, having been reinstated, members of the National Emergency Response Team
had been deployed to deny him access to the workplace; and that all charges, but
one, in the second disciplinary hearing concerned the events of 14 February 2022.
[9] The Labour Court found there to be a direct correlation between the 2020
charges and the second set of disciplinary charges , with “ the [appellant’s] most
recent conduct …capable of being viewed as no more than the continuation of a pattern of victimisation of [Mr Nxele]”. While it was recognised that the current
appellant, appointed in September 2021, had no personal knowledge of the
substance of the protected disclosure, it was found not to be objectively
unreasonable for Mr Nxele to hold a subjective belief that the appellant’s conduct was in keeping with that of his predecessors. It was therefore ordered that t he
disciplinary enquiry be converted into a section 189A(11) inquiry by an a rbitrator.
The rule nisi issued was confirmed with costs and the appellant’s counter -application
was dismissed with no order of costs.
On appeal
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[10] The appellant contended on appeal that the Labour Court had erred in that a
rational connection and stricter nexus between the 2018 protected disclosure and
the 2022 charges was required to justify the order made, with the events of 14
February 2022 unrelated to the 2018 protected disclosure made. Since such nexus
did not exist, n o occupational detriment had occurred. In relation to Mr Nxele’s
suspension, the Court was said to have incorrectly divorced the issues of alleged
unlawfulness from unfairness and erred in identifying two distinct causes of action.
The appellant therefore sought that the appeal be upheld with costs and the decision of the Labour Court set aside.
[11] Mr Nxele opposed the appeal on the basis that t he objective facts indicated a
discernible nexus between the protected disclosure and the disciplinary charges he faced. In relation to the appellant’s claim of l is alibi pendens , the issue was said to be
moot in that Mr Nxele had since returned to work and upholding the appeal would be
of academic interest only more so since the GPSSBC had determined the
suspension issue in his favour .
Evaluation
[12] Section 188A(1) of the LRA permits an employer, with the consent of an
employee, or in accordance with a collective agreement, to request the CCMA or
bargaining council to appoint an arbitrator to conduct an inquiry into allegations about the conduct or capacity of that employee. S ection 188A(11) provides that:
‘Despite subsection (1) , if an employee alleges in good faith that the holding
of an inquiry contravenes the Protected Disclosures Act, 2000 (Act No. 26 of 2000), that employee or the employer may require that an inquiry be
conducted in terms of this section into allegations by the employer into the conduct or capacity of the employee.’
[13] There is no dispute that Mr Nxele made a protected disclosure in 2018. The
issue on appeal is whether the Labour Court was correct in finding that he had alleged in good faith that the holding of a disciplinary enquiry on the 2022 charges amounted to a contravention of the PDA and whether he was therefore entitled to
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have the disciplinary proceedings converted into an inquiry by arbitrator
under section 188A(11) of the LRA.
[14] There is no obligation on an employee who seeks to rely on section 188A(11)
to prove that the holding of the disciplinary hearing constitutes a contravention of the PDA.
3 Rather, what is required is that the employee allege s in good faith that the
holding of an inquiry does so.
[15] In his founding affidavit , Mr Nxele recorded his belief –
‘…in good faith that the holding of this disciplinary inqui ry is a contravention of
the [PDA]. At the outset I emphasize that I am not seeking to prevent [the appellant] from subjecting me to a disciplinary enquiry. I am simply seeking that I respond to the misconduct allegations levelled against me in an independent forum contemplated in section 188A of the LRA. ’
[16] Mr Nxele continued that when the urgent interdict was served on him on 13
February 2022, the appellant also issued a media statement announcing that he remained on suspension. On 5 May 2022, at the arbitration hearing at which his
unfair suspension dispute was considered by t he GPSSBC, the appellant served a
“proposed” charge sheet dated 22 March 2022 on Mr Nxele , with no date or venue at
which the hearing would be convened. In a subsequent email dated 16 May 2022 ,
Mr Nxele received notice that the hearing would be held from 24 May 2022 to 27 May 2022 in Pretoria, although his workplace is in Pietermaritzburg. On 17 May 2022, Mr Nxele sought that the hearing be converted into an inquiry by an arbitrator
in terms of section 188A(11) and that his suspension be uplifted given that it had lapsed in terms of the SMS Handbook. [17] In his application to the Labour Court , Mr Nx ele stated that:
‘…since 2016 up to now the national commissioners of the Departmen t have
been on a mission to get rid of me. My only sin is that I reported allegations of
impropriety and/or irregularities committed by Messrs Modise and Fraser. I
3 Section 3 of the PDA prohibits an employer from subjecting an employee to any occupational
detriment “ on account, or partly on account, of having made a protected disclosure”, with an
occupational detriment defined in section 1 in relation to an employee as including “ being subjected to
any disciplinary action ”.
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have survived three full blown disciplinary proceedings which were initiated by
the previous national commissioners with the aim of getting rid of me at all costs…All I am asking for is that, like the other two disciplinary i nquiries, this
one must also be dealt with in terms of section 188A as an inquiry by arbitrator, as I strongly believe that this is a continuation of my persecution that started in 2016.’
[18] He stated that he did not have faith, given his historical experience, in any
disciplinary inquiry under the control of the appellant and chaired by a chairperson
appointed by or on behalf of the appellant given that :
‘It does not require a rocket scientist to realize that it is the desire of the
[appellant] that I should be dismissed from work even if I did not commit any misconduct, as evident from the latest spurious misconduct allegations contained in the ‘proposed charge sheet’. The [appellant] has already displayed that he is prepared to abuse his power by ordering that the disciplinary enquiry be held in Pretoria whilst I am based in Pietermaritzburg, something unprecedented in the Department. ’
[19] In considering whether Mr Nxele had raised the allegation in good faith, t he
Labour Court relied on the decision of Radebe and Another v Premier, Free State
Province and Others
4 (Radebe) in which this Court made reference to the U nited
Kingdom Appeal Court (Civil Division) decision of Street v Derbyshire Unemployed
Workers’ Centre.5 In that matter , it was stated that:
‘Shorn of context, the words “in good faith” have a core meaning of honesty.
Introduce context, and it calls for further elaboration. Thus in the context of a claim or representation, the sole issue as to honesty may just turn on its truth.
But even where the content of the statement is true or reasonably believed by
its maker to be true, an issue of honesty may still creep in according to whether it is made with sincerity of intention for which the Act provides protection or for an ulterior and, say, malicious, purpose. The term is to be found in many statutory and common law contexts, and because they are
4 [2012] ZALAC 15; (2012) 33 ILJ 2353 (LAC) at para 37.
5 [2004] EWCA Civ 964; [2004] 4 ALL ER 839 at para 41.
8
necessarily conditioned by their context, it is dangerous to apply judicial
attempts at definition in one context to that of another.’
[20] The concept of good faith is sensitive to context. The undisputed facts before
the Labour Court were that the appellant refused to accept the outcome of the
section 188A(11) inquiry. This response caused the appellant on Sunday 13
February 2022 to serve on Mr Nxele an application to review the outcome of the
inquiry and an application to interdict his return to work. W hen Mr Nxele sought to
return to work on 14 February 2022, there was no lawful impediment on him from
doing so, yet , the appellant nevertheless had deployed members of the National
Emergency Response Team to bar Mr Nxele from entering the DCS premises and
resum ing his duties . Mr Nxele was then suspended from duty and at the ensuing
arbitration hearing in May 2022 considering the fairness of his suspension, he was
served proposed disciplinary charges, related in the main to his failed attempt to
return to work on 14 February 2022. In addition, Mr Nxele was notified that the
disciplinary hearing which would consider such charges would be held in Pretoria
and not in Pietermaritzburg where he worked.
[21] The appellant was aware the first disciplinary hearing instituted against Mr
Nxele had been converted into a section 188A(11) inquiry which found that he had
raised the allegation in good faith and that the holding of such disciplinary hearing
contravene d the PDA. Yet, in spite of this, the appellant’s response to the outcome
of that inquiry was not only calculated but also unusual in a number of respects. The
appellant immediately sought to bar Mr Nxele’s return to work, going as far as to serve review papers and an interdict application on him on a Sunday. Furthermore, he caused members of the National Emergency Response Team to be deployed to
bar Mr Nxele from physically entering the DCS premises and resuming his duties. This was not an ordinary response to the outcome of an inquiry with which an employer took issue. It was a heavy -handed and directed response which reflected a
particular and unusual degree of antipathy to the outcome of the inquiry and the return of a senior employee to work. T here was no indication why such a response
was required and no reason advanced why Mr Nxele’s return to work would pose
any particular threat or danger given his position in the DCS if this was not related to
the protected disclosure he had previously made.
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[22] The appellant’s decision thereafter to institute disciplinary proceedings against
Mr Nxele related to his attempt to return to work was a similarly unusual and heavy -
handed response to the events which had transpired in circumstances in which Mr
Nxele was legally entitled to return to work given the outcome of the inquir y, and h is
attempt to contact politicians responsible for correctional service could not
reasonably justify him being physically barred from reporting for duty in the matter
that occurred. His suspension from duty and the decision to serve proposed
disciplinary charges on Mr Nxele at the arbitration hearing convened to consider the
fairness of his suspension reflected a clear intent on the part of the appellant to take whatever steps necessary to prevent Mr Nxele’s return, with t he decision to hold the
hearing to consider such charges in Pretoria and not in Pietermaritzburg where he worked being similarly calculated.
[23] Given as much, the Labour Court did not err in finding that on the facts there
existed a direct correlation between the protected disclosure of 2018 and the 2022 charges which were directly related to the implementation of the findings of the
section 188A(11) inquiry held. T he appellant’s deep dissatisfaction with the outcome
of the inquiry was evident in the steps taken to physically bar Mr Nxele from
attending work and the new disciplinary charges instituted against him. In these
circumstances , the Court cannot be faulted in finding that “ the [appellant’s] most
recent conduct …[was] capable of being viewed as no more than the continuation of
a pattern of victimisation of [Mr Nxele]”. This was so given that there existed a clear
nexus between the protected disclosure made, the outcome of the section 188A(11) inquiry and the new disciplinary charges instituted in May 2022 against Mr Nxele. Clear support therefore existed that Mr Nxele had alleged in good faith that the
appellant had taken disciplinary action against him on account of or partly on
account of his having made the protected disclosure that he did.
[24] The Labour Court did not therefore err in finding that a nexus had been shown
to exist and that Mr Nxele had alleged in good faith that the holding of the scheduled
disciplinary hearing contravened the PDA , section 3 of which prohibits an employer
from subjecting an employee to any occupational detriment “ on account, or partly on
account, of having made a protected disclosure”, with an occupational detriment
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defined in section 1 in relation to an employee as including “ being subjected to any
disciplinary action ”. Mr Nxele consequently held a clear right to the relief sought by
him in terms of section 188A(11) and the Labour Court cannot be faulted for
confirming the rule nisi issued. There is no merit in the appellant’s contention that the
Labour Court unduly strained the interpretation of section 188A(11), nor in the
contention that a fact -based enquiry was not undertaken by the Court. For the
reasons advanced, t he facts did not support a conclusion that the disciplinary
hearing instituted in 2022 had nothing to do with Mr Nxele’s previous protected
disclosure.
[25] Turning to the Labour Court’s finding that Mr Nxele’s suspension was
unlawful , it is a relevant consideration that the GPSSBC found his suspension to be
unfair, ordered that it be uplifted and that Mr Nxele returns to work in September
2022. That decision remains the subject of a pending review at the instance of the
appellant in the Labour Court . However, s ince Mr Nxele has returned to work, the
appeal against the finding that his suspension was unlawful is moot insofar as it is an
issue of purely academic interest and no purpose would be served in determining the merits of the contention that the defence of lis alibi pendens was available to the
appellants , given that when the matter was determined by the Labour Court there
existed pending litigation between the same parties or their privies, based on the
same course of action, in respect to the same subject matter at the GPSSBC.
[26] It is so that m ootness is not an absolute bar to the justiciability of an issue and
that a court enjoys a discretion whether or not to hear a matter. The test is one of the
interests of justice, with a relevant consideration being whether the order that the court may make will have any practical effect either on the parties or on others.
The Court may decide to resolve an issue that is moot if to do so would be in the
public interest in the sense that it will either benefit the larger public or achieve legal
certainty.
6 In this matter , no interests of justice, nor public interest will be served by
deciding the merits of the issue raised.
6 Van Wyk v Unitas Hospital and Another (Open Democratic Advice Centre as Amicus Curiae) [2007]
ZACC 24; 2008 (2) SA 472 (CC) at para 29. See National Union of Metal workers of South Africa and
Others v Vulcania Reinforcing Co (P ty) Ltd and Another [2022] ZALAC 91; (2022) 43 ILJ 1307 (LAC) .
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[27] As to costs, it was argued for the appellant that Mr Nxele approached the
Labour Court on very short notice and that the costs order made by the Labour Court
was not justified. It is trite that in labour matters costs do not simply follow the result, with the general rule, as stated in Union for Police Security and Corrections
Organisation v South African Custodial Management (Pty) Ltd and Others
7 (Union
for Police Security ), being that the losing party should not be mulcted in costs in such
matters . The Court is required, in exercising its discretion on costs , to strike a fair
balance between not unduly discouraging parties from approaching it to have their
disputes dealt with, while not allowing frivolous cases to be brought to the Court.8
[28] I am unable to find that the Labour Court erred in the exercise of its discretion
that the appellant be held liable for Mr Nxele ’s costs in his application to that Court.
The relevant considerations of law and fairness were considered appropriately and
no basis has been advanced to support a finding that the Labour Court erred in the
exercise of its discretion in this regard.
[29] As to the costs on appeal, having regard to considerations of law and
fairness , the costs of the appeal, including those in respect of the reinstatement and
condonation applications made, should be borne by the appellant. This is so given the facts of the matter ; the conduct of the appellant, including the continued litigation
of the matter apparently with limited regard to the consequence of doing so on the public purse; and the limited merit found to exist in the appeal . Given as much, I can
find no reason why considerations of law and fairness would require Mr Nxele to be saddled with the costs of opposing this appeal. [30] For all of these reasons , the appeal falls to be dismissed with costs and the
following order is therefore made:
Order
1. T he appeal is reinstated and condonation for the late filing of the record
of appeal and notice of appeal is granted.
7 [2021] ZACC 26; 2021 (11) BCLR 1249 (CC) at paras 39 - 40.
8 Member of the Executive Council for Finance, KwaZulu- Natal and Another v Dorkin NO and Another
[2007] ZALAC 41; (2008) 29 ILJ 1707 (LAC) at para 19.
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2. T he appeal is dismissed with costs, including the costs of the
reinstatement and condonation applications.
SAVAGE ADJP
Van Niekerk JA and Govindjee AJA agree.
APPEARANCES:
FOR THE APPELLANT: T P Kruger SC and C D’Alton
Instructed by the State Attorney
FOR THE FIRST RESPONDENT: B Mgaga of Garlicke & Bousfield Inc