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Political Reform Opens the Door

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Political Reform Opens the Door POLITICAL AND CONSTITUTIONAL REFORM OPENS THE DOOR: THE KINGDOM OF TONGA'S PATH TO DEMOCRACY Guy Powles Dr Guy Powles, Faculty of Law, Monash University, Barrister and Solicitor, New Zealand and Victoria. Home office email: [email protected]. Published by Comparative Law Journal of the Pacific/Journal de Droit Comparé du Pacifique in conjunction with the New Zealand Association for Comparative Law Hors serie/Monograph XV Three acronyms are frequently employed – NCPR – National Committee for Political Reform CEC – Constitutional and Electoral Commission RLC – Royal Land Commission. Unless otherwise indicated, "cl" and "cls" refer to the clauses of the Constitution amended as at 30 November 2010 – for which see the consolidation in the Appendix. Where a year is cited, as in 1988 cl 41, that refers to the consolidation of the laws including the Constitution, of that year. Printed by City Print, Wellington, New Zealand 2012 CONTENTS I Introduction .................................................................................................. 1 II Contributors and Sources .............................................................................. 7 III Accomplishments of the Constitutional and Electoral Commission ................ 9 IV Input of King George Tupou V and The Sevele Cabinet .............................. 14 V Analysis of Reform Measures ..................................................................... 17 A Magnitude of the Proposed Changes ........................................................ 17 B Major Changes to the Executive Structure ............................................... 18 C The Cabinet ............................................................................................. 20 1 Size and Composition .......................................................................... 20 2 Un-elected Ministers ........................................................................... 20 3 Full Executive Authority and Responsibility ........................................ 22 4 Cabinet Manual ................................................................................... 23 5 Information for the Assembly and the Public ....................................... 24 D The Legislature ....................................................................................... 24 1 Discipline and Impeachment ................................................................ 26 E The Nobles .............................................................................................. 26 1 Representation ..................................................................................... 27 2 Speaker of the Assembly ..................................................................... 32 3 Estate Holders ..................................................................................... 32 4 Privileges ............................................................................................ 33 F Change of Government............................................................................ 34 G The Monarch, the Assembly and Law-making ......................................... 35 1 'What's in a Name?' ............................................................................. 35 H The Judiciary .......................................................................................... 36 iii 1 Court Structure and Appointments ....................................................... 37 2 Members of the Judiciary Today .......................................................... 37 3 The Judicial Services Commission and Code of Conduct ..................... 38 I Judicial Independence ............................................................................. 39 1 Intervention by King Tupou V ............................................................. 39 2 The CEC's Recommendations .............................................................. 40 3 Current Reforms Concerning the Judiciary........................................... 41 4 An Historical Perspective .................................................................... 43 5 Significance for Tonga ........................................................................ 50 J The Attorney-General.............................................................................. 52 1 Intervention ......................................................................................... 53 2 The Independent Model ....................................................................... 54 3 Commissioner of Police ....................................................................... 59 VI Providing Advice for His Majesty ............................................................... 61 A The Privy Council ................................................................................... 61 B The Law Lords and the Judicial Appointments Panel ............................... 64 C The Monarch's Authority in Government ................................................. 65 VII The Electoral System............................................................................... 71 VIII The Land System .................................................................................... 77 IX Conclusion: The Open Door ........................................................................ 83 A Stock-take ............................................................................................... 83 B Amending the Constitution ...................................................................... 83 C Public Awareness and Involvement ......................................................... 85 References .......................................................................................................... 89 The Constitution of Tonga .................................................................................. 95 iv 1 POLITICAL REFORM OPENS THE DOOR: THE KINGDOM OF TONGA'S PATH TO DEMOCRACY I INTRODUCTION Legislative Assembly elections held on 25 November 2010 under an amended Constitution and related laws brought to the Kingdom of Tonga for the first time in its history a government chosen by the electorates instead of by the Monarch. Questions have been asked as to the readiness of voters and candidates to take on the responsibility. Within government, the Monarch remains very influential despite the steps taken by the late King Tupou V to cede most, but not all, of the Monarch's executive powers to the Cabinet of Ministers. Issues may arise concerning the Monarch's appointment of advisers and his relationship with certain sectors of the governmental system. The main purpose of this paper is to provide an overview of the new political and constitutional regime, while offering insights into the thinking and decision- making that went into its development. This Introduction will provide a preliminary outline of recent events as a backdrop to the Sections of the paper. Tonga's journey thus far has reflected the uniqueness of its political history in the Pacific context, and demonstrated the capacity of individuals to make definitive contributions to the shaping of that history. The nation's vintage Constitution of 1875 has served Tonga well1 and there has been resistance to change. That the Kingdom now has an amended constitutional structure in place which gives effect to a dramatic reform agenda is testament to a successful pragmatic partnership between King Tupou V and the out-going government led by Dr Felete Sevele. His Majesty King George Tupou V died on 18 March 2012.2 With the departure from the scene of both the late King and Lord Sevele 3 at the conclusion of a relatively short and intense period of constitutional change, it is timely to review the achievements of that partnership, and of that period, 1 The Constitution introduced by King George Tupou I in 1875 was altered little after 1891. 2 He had been on the throne since the death of his father King Tupou IV in 2006. His younger brother has succeeded him as King Tupou VI. 3 On retirement from politics, Dr Sevele was invested by King Tupou V with a Life Peerage – to be known as Lord Sevele of Vailahi (Matangi Tonga 29 Dec 2010). 2 THE KINGDOM OF TONGA'S PATH TO DEMOCRACY The November 2010 elections referred to introduced an electoral system in which the two electorates comprised: i the hereditary land-holding Nobles (33 titles held by 29-30 Nobles4), plus 9 Life Peers (honorary Nobles), who elect 9 hereditary Nobles; and ii the balance of the people (around 45-50,000 aged 21 years or more) who elect 17 representatives (Constitution cl 60). In a secret ballot on 21 December 2010, 14 of the 26 members of the new Assembly chose as Prime Minister Lord Tu'ivakano, 5 a Noble and an experienced parliamentarian. Pro-Democracy veteran, 'Akilisi Pohiva, mustered 12 votes. From the elected members Tu'ivakano appointed a Cabinet of 11 Ministers including 2 Nobles and both independent and 'Democracy' members.6 Permitted to choose up to 4 Ministers from outside the House, he chose 2, one of whom is a senior woman educator and the other an experienced lawyer and politician (MT 5 Jan 2011). The new Prime Minister said he did not recognize the existence of political parties and that Cabinet was designed to represent the whole country (Radio Australia 'Pacific Beat' 4 Jan 2011). It remains to be seen what form of opposition will develop in the House. Indications are as this paper goes to press, that government leadership will be contested by motions of no confidence, the first of which can be brought
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