ATTORNEY-GENERAL OF THE FEDERATION and 2 OTHERS v ALHAJI ATIKU ABUBAKAR (VICE PRESIDENT, FEDERAL REPUBLIC OF NIGERIA) and 3 OTHERS (SC 31/2007) [2007] NGSC 177 (20 April 2007)

**IN THE SUPREME COURT OF NIGERIA** **ON FRIDAY, THE 20TH DAY OF APRIL 2007** **SC 31/2007** **BETWEEN** **ATTORNEY-GENERAL** **OF** **THE** **FEDERATION** **and** **2** **OTHERS** **......................****APPELLANTS** **AND** **ALHAJI** **A****T****IK****U** **ABUB****A****KA****R** **(VI****C****E** **PRESID****E****NT****,** **FEDE****R****A****L** **REPU****B****LI****C** **O****F** **NIG****E****RIA****)** **an****d** **3** **O****THER****S** **....................****RESPONDENTS** **BEFORE:** Sylvester Umaru Onu; Dahiru Musdapher; Sunday Akinola Akintan; Walter Samuel Nkanu Onnoghen; Francis Fedode Tabai; Ibrahim Tanko Muhammad; Pius Olayiwola Aderemi, JJSC **I****SS****U****E****S** _Whether_ _t_ _he_ _f_ _act_ _that_ _t_ _he_ _P_ _resident_ _had_ _not_ _actually_ _declared_ _t_ _he_ _s_ _eat_ _of_ _t_ _he_ _V_ _ice_ _President_ _v_ _acant_ _meant_ _t_ _hat_ _there_ _was_ _no_ _live_ _issue_ _(lis)_ _between_ _the_ _parties_ _which_ _the_ _Court_ _could_ _be_ _called_ _upon_ _to_ _decide._ _Whether_ _by_ _reason_ _o_ _f_ _h_ _is_ _defection_ _from_ _the_ _P_ _eople's_ _Democratic_ _Party_ _(__"PDP"),_ _the_ _p_ _arty_ _on_ _w_ _hose_ _platform_ _he_ _c_ _ame_ _t_ _o_ _office_ _wi_ _th_ _the_ _Pr_ _esident,_ _to_ _the_ _Ac_ _tion_ _C_ _ongress,_ _t_ _he_ _fir_ _st_ _res_ _pondent_ _h_ _ad_ _vacated_ _t_ _he_ _office_ _o_ _f_ _th_ _e_ _Vice_ _P_ _resident._ _W_ _hethe_ _r_ _,_ _havin_ _g_ _r_ _e_ _gar_ _d_ _t_ _o_ _s_ _e_ _ction_ _s_ _1_ _3_ _5_ _,_ _142_ _,_ _14_ _3_ _,_ _144_ _,_ _146_ _,_ _3_ _0_ _8_ _an_ _d_ _ot_ _h_ _e_ _r_ _provi_ _s_ _ion_ _s_ _o_ _f_ _th_ _e_ _1_ _99_ _9_ _Con_ _s_ _tituti_ _o_ _n_ _,_ _th_ _e_ _Court_ _of_ _Appeal_ _correctly_ _granted_ _the_ _first_ _respondent_ _relief,_ _restoring_ _him_ _to_ _office,_ _and_ _dismissed_ _the_ _appellant's_ _counter-claim_ _that_ _t_ _he_ _o_ _ffice_ _of_ _t_ _he_ _Vice_ _P_ _resident_ _be_ _declared_ _vacant._ _Whether_ _the_ _respondent_ _should_ _be_ _deemed_ _to_ _have_ _resigned_ _in_ _terms_ _of_ _section_ _146(3)(c)_ _of_ _the_ _Constitution_ _on_ _account_ _of_ _his_ _having_ _joined_ _another_ _political_ _party_ _a_ _nd_ _o_ _pposed_ _t_ _he_ _P_ _resident._ _Whether_ _the_ _Court_ _of_ _Appeal_ _in_ _properly_ _evaluating_ _all_ _the_ _evidence_ _before_ _it,_ _had_ _identified_ _the_ _issues_ _in_ _dispute_ _and_ _had_ _properly_ _applied_ _its_ _findings_ _of_ _law_ _before_ _arriving_ _at_ _a_ _decision._ _Whethe_ _r_ _t_ _h_ _e_ _C_ _our_ _t_ _o_ _f_ _A_ _p_ _pe_ _a_ _l_ _wo_ _u_ _l_ _d_ _h_ _a_ _v_ _e_ _c_ _om_ _e_ _t_ _o_ _a_ _d_ _i_ _ff_ _e_ _ren_ _t_ _con_ _c_ _lu_ _s_ _io_ _n_ _i_ _f_ _i_ _t_ _h_ _a_ _d_ _c_ _ons_ _i_ _de_ _r_ _e_ _d_ _a_ _l_ _l_ _th_ _e_ _ev_ _i_ _den_ _c_ _e_ _._ _Wh_ _e_ _t_ _h_ _e_ _r_ _i_ _n_ _c_ _o_ _ns_ _t_ _r_ _u_ _in_ _g_ _th_ _e_ _in_ _t_ _e_ _n_ _ti_ _o_ _n_ _o_ _f_ _th_ _e_ _dr_ _a_ _f_ _t_ _er_ _s_ _o_ _f_ _t_ _h_ _e_ _C_ _on_ _s_ _t_ _i_ _tu_ _t_ _i_ _o_ _n_ _i_ _n_ _r_ _e_ _l_ _at_ _i_ _o_ _n_ _t_ _o_ _s_ _e_ _c_ _t_ _i_ _o_ _n_ _14_ _2_ _(__1_ _)__,_ _t_ _h_ _e_ _t_ _r_ _i_ _a_ _l_ _c_ _o_ _u_ _r_ _t_ _w_ _a_ _s_ _bound_ _to_ _consider_ _the_ _history_ _of_ _the constitutional_ _p_ _rovisions,_ _t_ _he_ _s_ _ocietal_ _n_ _eed_ _for_ _w_ _hich_ _t_ _he_ _l_ _aw_ _wa_ _s_ _made_ _a_ _nd_ _t_ _he_ _n_ _eed_ _t_ _o_ _avoid_ _absurdity._ _W_ _h_ _e_ _th_ _e_ _r_ _t_ _h_ _e_ _n_ _a_ _r_ _ro_ _w_ _i_ _n_ _te_ _r_ _pr_ _e_ _t_ _a_ _ti_ _o_ _n_ _o_ _f_ _s_ _e_ _c_ _t_ _io_ _n_ _14_ _2_ _(__1_ _)_ _o_ _f_ _t_ _h_ _e_ _C_ _o_ _n_ _s_ _ti_ _t_ _ut_ _i_ _o_ _n_ _de_ _f_ _e_ _a_ _te_ _d_ _t_ _h_ _e_ _i_ _n_ _t_ _e_ _nt_ _i_ _o_ _n_ _o_ _f_ _t_ _h_ _e_ _m_ _a_ _k_ _er_ _s_ _o_ _f_ _th_ _e_ _Constitution._ _Wh_ _e_ _th_ _e_ _r_ _t_ _h_ _e_ _f_ _a_ _il_ _u_ _r_ _e_ _o_ _f_ _t_ _h_ _e_ _tr_ _i_ _a_ _l_ _c_ _ou_ _r_ _t_ _t_ _o_ _a_ _s_ _c_ _ri_ _b_ _e_ _a_ _d_ _e_ _fi_ _n_ _i_ _t_ _e_ _m_ _e_ _an_ _i_ _n_ _g_ _t_ _o_ _th_ _e_ _wo_ _r_ _d_ _"__a_ _ss_ _o_ _c_ _i_ _at_ _e_ _"_ _i_ _n_ _s_ _ec_ _t_ _i_ _o_ _n_ _14_ _2_ _(__1_ _)_ _o_ _f_ _t_ _h_ _e_ _Constitution_ _was_ _erroneous._ _What_ _would_ _be_ _the_ _legal_ _and_ _constitutional_ _consequences_ _when_ _the_ _relationship_ _between_ _the_ _President_ _and_ _Vice_ _President_ _broke_ _down_ _and_ _they_ _could_ _not_ _operate_ _harmoniously_ _as_ _envisaged_ _under_ _the_ _Constitution?_ **F****ACT****S** _Al_ _h_ _a_ _j_ _i_ _At_ _i_ _k_ _u_ _A_ _b_ _u_ _ba_ _k_ _a_ _r_ _'s_ _,_ _th_ _e_ _fi_ _r_ _s_ _t_ _r_ _e_ _s_ _po_ _n_ _d_ _e_ _nt_ _,_ _c_ _l_ _a_ _i_ _m_ _a_ _ro_ _s_ _e_ _f_ _r_ _o_ _m_ _d_ _i_ _s_ _ag_ _r_ _e_ _e_ _me_ _n_ _t_ _a_ _n_ _d_ _c_ _o_ _nt_ _r_ _o_ _v_ _e_ _r_ _s_ _y_ _b_ _e_ _t_ _w_ _ee_ _n_ _hi_ _m_ _a_ _s_ _V_ _ic_ _e_ _-President_ _o_ _f_ _Ni_ _g_ _eri_ _a_ _an_ _d_ _t_ _h_ _e_ _Pres_ _i_ _den_ _t_ _o_ _f_ _N_ _igeri_ _a_ _a_ _n_ _d_ _th_ _e_ _fi_ _r_ _s_ _t_ _resp_ _o_ _nden_ _t_ _a_ _s_ _Vic_ _e_ _Pr_ _e_ _siden_ _t_ _o_ _f_ _Niger_ _i_ _a_ _._ _H_ _e_ _c_ _la_ _i_ _m_ _e_ _d_ _t_ _h_ _a_ _t_ _,_ _o_ _n_ _2_ _3_ _De_ _c_ _em_ _b_ _e_ _r_ _20_ _0_ _6_ _,_ _th_ _e_ _Pr_ _e_ _s_ _i_ _de_ _n_ _t_ _'__s_ _S_ _p_ _ec_ _i_ _a_ _l_ _As_ _s_ _i_ _s_ _ta_ _n_ _t_ _o_ _n_ _P_ _u_ _bl_ _i_ _c_ _A_ _ff_ _a_ _ir_ _s_ _,_ _M_ _al_ _l_ _a_ _m_ _Ub_ _a_ _S_ _a_ _nn_ _i_ _,_ _h_ _a_ _d_ _announced_ _that_ _th_ _e_ _of_ _fice_ _o_ _f_ _th_ _e_ _Vi_ _ce_ _President_ _of_ _Ni_ _geria_ _was_ _vacant,_ _and_ _the_ _announcement_ _was_ _reported_ _in_ _se_ _veral_ _newspapers._ _It_ _had_ _also_ _been_ _announced_ _that_ _his_ _immunity_ _as_ _Vice_ _President_ _from_ _prosecution_ _had_ _been_ _withdrawn_ _and_ _that_ _all_ _his_ _privileges,_ _entitlements,_ _rights_ _and_ _benefits_ _as_ _Vice_ _President_ _had_ _been_ _withdrawn._ _The_ _first_ _respondent_ _further_ _alleged_ _that_ _his_ _official_ _residence_ _had_ _been_ _sealed_ _off_ _by_ _police_ _and_ _soldiers_ _and_ _that_ _all_ _vehicles_ _have_ _b_ _een_ _removed_ _and_ _the_ _s_ _taff_ _a_ _ttached_ _to_ _his_ _office_ _r_ _edeployed._ _Th_ _e_ _fi_ _r_ _s_ _t_ _re_ _s_ _p_ _o_ _n_ _d_ _en_ _t_ _c_ _l_ _ai_ _m_ _e_ _d_ _f_ _u_ _r_ _t_ _h_ _e_ _r_ _t_ _h_ _a_ _t_ _t_ _h_ _e_ _P_ _r_ _e_ _s_ _i_ _d_ _en_ _t_ _ha_ _d_ _a_ _c_ _cu_ _s_ _e_ _d_ _h_ _i_ _m_ _o_ _f_ _h_ _a_ _v_ _in_ _g_ _co_ _n_ _c_ _e_ _a_ _l_ _e_ _d_ _t_ _h_ _e_ _f_ _a_ _c_ _t_ _t_ _h_ _a_ _t_ _h_ _e_ _h_ _a_ _d_ _abandoned_ _t_ _he_ _P_ _DP,_ _of_ _w_ _hich_ _he_ _a_ _nd_ _t_ _he_ _P_ _resident_ _had_ _been_ _members_ _at_ _t_ _he_ _ti_ _me_ _o_ _f_ _election,_ _a_ _nd_ _h_ _ad_ _o_ _penly_ _d_ _eclared_ _allegiance_ _to_ _another_ _political_ _party,_ _the_ _Action_ _Congress;_ _that_ _he_ _had_ _abandoned_ _the_ _ideology_ _of_ _the_ _PDP_ _and_ _had_ _openly_ _de_ _nounced_ _a_ _nd_ _condemned_ _the_ _PDP_ _and_ _criticised_ _th_ _e_ _deci_ _sions_ _o_ _f_ _th_ _e_ _Gove_ _rnment_ _o_ _f_ _whi_ _ch_ _he_ _wa_ _s_ _a_ _par_ _t._ _I_ _n_ _rep_ _l_ _y_ _,_ _th_ _e_ _a_ _p_ _pell_ _a_ _n_ _t_ _acc_ _u_ _se_ _d_ _t_ _h_ _e_ _firs_ _t_ _r_ _espo_ _n_ _den_ _t_ _o_ _f_ _h_ _avin_ _g_ _conc_ _e_ _ale_ _d_ _t_ _h_ _e_ _fac_ _t_ _t_ _h_ _a_ _t_ _h_ _e_ _h_ _a_ _d_ _swit_ _c_ _he_ _d_ _al_ _l_ _egia_ _n_ _c_ _e_ _t_ _o_ _another_ _political_ _party_ _(Action_ _Congress),_ _that_ _he_ _had_ _campaigned_ _for_ _that_ _party,_ _condemned_ _the_ _government_ _and_ _failed_ _to_ _attend_ _Federal_ _Executive_ _Council_ _meetings_ _for_ _two_ _months._ _In_ _other_ _words_ _that_ _he_ _had_ _deserted_ _the_ _very_ _cause_ _that_ _he_ _represented._ _The_ _first_ _respondent_ _brought_ _the_ _action_ _by_ _Originating_ _Summons_ _filed_ _in_ _the_ _Court_ _of_ _Appeal_ _pursuant_ _to_ _the_ _provisions_ _of_ _section_ _239_ _of_ _the_ _1999_ _Constitution,_ _seeking_ _orders_ _that_ _the_ _declaration_ _of_ _the_ _President_ _that_ _the_ _office of_ _Vice_ _President_ _was_ _vacant_ _and_ _that_ _he_ _had_ _been_ _removed_ _f_ _rom_ _t_ _he_ _o_ _ffice_ _o_ _f_ _Vice_ _President_ _was_ _u_ _nlawful._ _H_ _e_ _sought_ _to_ _be_ _restored_ _to_ _the_ _office_ _and_ _claimed_ _a_ _perpetual_ _injunction_ _restraining_ _the_ _a_ _ppellants_ _from_ _violating_ _or_ _impugning_ _his_ _c_ _onstitutional_ _immunity_ _a_ _s_ _Vice_ _President._ _I_ _n_ _a_ _c_ _o_ _u_ _n_ _t_ _e_ _r_ _-__c_ _l_ _a_ _i_ _m_ _,_ _t_ _h_ _e_ _a_ _p_ _p_ _e_ _l_ _l_ _a_ _n_ _t_ _s_ _o_ _u_ _g_ _h_ _t_ _a_ _n_ _o_ _r_ _d_ _e_ _r_ _d_ _e_ _c_ _l_ _a_ _r_ _i_ _n_ _g_ _t_ _h_ _a_ _t_ _t_ _h_ _e_ _P_ _r_ _e_ _s_ _i_ _d_ _e_ _n_ _t_ _a_ _n_ _d_ _V_ _i_ _c_ _e_ _P_ _r_ _e_ _s_ _i_ _d_ _e_ _n_ _t_ _s_ _h_ _o_ _u_ _l_ _d_ _b_ _o_ _t_ _h_ _b_ _e_ _l_ _o_ _n_ _g_ _t_ _o_ _the_ _same_ _political_ _party,_ _that_ _the_ _office_ _of_ _the_ _Vice_ _President_ _could_ _become_ _vacant_ _upon_ _the_ _Vice_ _President_ _resigning_ _from_ _the_ _sponsoring_ _political_ _party_ _and_ _that_ _the_ _first_ _respondent_ _be_ _restrained_ _from_ _parading_ _himself_ _as_ _the_ _Vice_ _President._ _T_ _h_ _e_ _C_ _o_ _ur_ _t_ _o_ _f_ _A_ _p_ _p_ _e_ _al_ _,_ _i_ _n_ _t_ _h_ _e_ _e_ _xe_ _r_ _c_ _i_ _s_ _e_ _o_ _f_ _i_ _t_ _s_ _o_ _r_ _ig_ _i_ _n_ _a_ _l_ _j_ _ur_ _i_ _s_ _d_ _ic_ _t_ _i_ _o_ _n_ _,_ _en_ _t_ _e_ _r_ _e_ _d_ _ju_ _d_ _g_ _m_ _en_ _t_ _i_ _n_ _f_ _a_ _vo_ _u_ _r_ _o_ _f_ _t_ _h_ _e_ _fi_ _r_ _s_ _t_ _r_ _e_ _sp_ _o_ _n_ _d_ _en_ _t_ _,_ _declaring_ _that_ _his_ _office_ _as_ _V_ _ice_ _P_ _resident_ _st_ _ill_ _s_ _ubsisted,_ _t_ _hat_ _t_ _he_ _appellants_ _had_ _n_ _o_ _po_ _wer_ _t_ _o_ _de_ _clare_ _th_ _e_ _o_ _ffice_ _va_ _cant_ _and_ _that_ _the_ _declaration_ _that_ _the_ _office_ _was_ _vacant_ _was_ _unconstitutional,_ _null_ _and_ _void._ _T_ _h_ _e_ _f_ _i_ _r_ _s_ _t_ _a_ _p_ _p_ _e_ _l_ _l_ _a_ _n_ _t_ _a_ _p_ _p_ _e_ _a_ _l_ _e_ _d_ _t_ _o_ _t_ _h_ _e_ _S_ _u_ _p_ _r_ _e_ _m_ _e_ _C_ _o_ _u_ _r_ _t_ _._ **HELD** **L****ea****d****in****g** **j****udg****m****en****t** by Sunday Akinola Akintan JSC; with S.U. Onu; D. Musdapher; W.S.N. Onnoghen; F.F. Tabai; I.T. Muhammad; P.O. Aderemi, JJSC (unanimously dismissing the appeal) **1****.** **Essentials** **of** **cause** **of** **action** **(lis)** A _lis_ or cause of action is constituted by a bundle of facts which the law would recognise as giving the plaintiff a right of action. Such combination of facts would consist of two elements: the wrongful act of the defendant and the consequential loss or damage. _Lis_ therefore means controversy or dispute. The person seeking to invoke judicial power must show that his personal interest would be immediately affected by the action and that the injury sustained was over and above the interest of the general public. Per Akintan, JSC at 70. **2****.** **Unhealthy** **relationship** **between** **President** **and** **Vice** **President** **gave** **rise** **to** **cause** **of** **action** **(lis)** The facts disclosed that there had been an unhealthy relationship between the President and first respondent in which the first respondent had been declared the "former Vice President" and in which his office had been publicly declared vacant. The first respondent had clearly established that he had a good cause of action to warrant instituting the action, and the appellant's claim that no _lis_ existed failed. Per Akintan, JSC at 70. **3****.** **Trial** **court** **in** **its** **judgment** **duly** **resolved** **all** **the** **issues** All the issues raised by the parties were duly resolved in the judgment of the trial court, and all the inferences made by the Court were supported by evidence. The fact that the trial judge did not repeat the evidence led in support of a particular finding or state that he believed or disbelieved a particular piece of evidence was not enough to displace this conclusion. Per Akintan, JSC at 70. **4****.** **Clear** **words** **in** **the** **Constitution** **given** **their** **ordinary** **meaning** In interpreting the Constitution, words are given their ordinary meaning, unless used in a technical sense, when they are afforded their technical meaning. Phrases and sentences are construed according to the ordinary rules of grammar. If there is nothing to modify, alter or qualify the language which the statue contains, it must be construed according to its ordinary and natural meaning. Such interpretation must be in the context of a liberal understanding that takes into account the circumstances of the nation's people. Per Akintan, JSC at 70. **5****.** **Duty** **of** **judges** **to** **expound,** **and** **not** **expand** **the** **law** The duty of judges is to expound the law as it is by the clear words of the law-makers. Judges' duty did not extend to expanding the law; that is the exclusive function of the law-makers. Per Aderemi, JSC at 155; Per Onu, JSC at 94. **6****.** **Words** **in** **section** **142(1)** **of** **Constitution** **clear** **and** **unambiguous** The words in section 142(1) of the Constitution are clear and unambiguous and do not call for any interpretation other than the application of their literal and plain construction. The section envisaged a united presidency between the President and Vice President throughout the tenure. Per Onnoghen, JSC at 105. **7****.** **Constitution** **envisaged** **harmonious** **political** **relationship** **between** **President** **and** **Vice** **president** The President nominated the Vice President from the same political party as the President and the Constitution assumed that the President and Vice President should maintain the same relationship throughout their term of office. The unity contemplated transcended the fact that the Vice President was not voted for in a separate election. Per Akintan, JSC at 70. **8****.** **Constitutional** **roles** **of** **offices** **of** **President** **and** **Vice** **President** The offices of the President and Vice President are creations of the Constitution (sections 130 and 141 respectively). The executive powers of the Federation are vested in the President by section 5(1) of the Constitution. While the Constitution created both offices, the executive powers vested only in the President. The Nigerian Constitution did not assign any specific executive role to the Vice President. His role was limited to what the President assigned to him. Per Akintan, JSC at 70. **9****.** **President** **has** **no** **constitutional** **powers** **to** **remove** **the** **Vice** **President** The Vice President can not be removed by the President. The process for removal was contained in section 143 of the Constitution, through the process of impeachment by the National Assembly. Section 143(10) specifically ousted the courts from interfering in the proceedings leading to the impeachment of holders of the two offices for gross misconduct, as defined in section 143(11). Per Akintan, JSC at 70. **10****.** **V****i****c****e** **P****r****e****s****id****e****n****t** **s****h****o****u****l****d** **n****o****t** **c****r****i****t****i****c****i****s****e** **G****o****v****e****r****n****me****n****t** **o****r** **j****o****i****n** **a****n****o****t****he****r** **p****ar****t****y** The trial court was therefore incorrect to hold that the first respondent could, while Vice President, openly criticise the same government or join another political party and campaign for the office of President. His right to freedom of association did not stretch that far. He was required to first resign. Per Akintan, JSC at 70. **11****.** **C****o****ur****t** **h****a****d** **n****o** **p****o****w****e****r** **t****o** **p****r****o****no****u****n****c****e** **o****n** **th****e** **b****eh****a****v****i****o****u****r** **o****f** **t****h****e** **V****i****c****e** **P****r****e****s****i****d****e****n****t** **a****n****d** **d****e****c****l****ar****e** **o****ff****i****c****e** **v****a****c****a****n****t** It was not the duty of the Court to pronounce on the behaviour of the Vice President and declare his office vacant. That decision and action lay with the National Assembly. Per Akintan, JSC at 70. **12****.** **O****ffic****e** **o****f** **Vic****e** **Presiden****t** **create****d** **b****y** **th****e** **Constit****u****tio****n** The office of the Vice President is created by the Constitution. His appointment and removal from office are also provided for, in Constitution. Per Akintan,