ATTORNEY-GENERAL OF KANO STATE v ATTORNEY-GENERAL OF THE FEDERATION (SC 26/2006) [2007] NGSC 197 (2 March 2007)

**ATTORNEY-GENERAL** **OF** **KANO** **STATE** **(PLAINTIFF)** **_v_.** **ATTORNEY-GENERAL** **OF** **THE** **FEDERATION** **(DEFENDANT)** **(2007)** **2** **All** **N.L.R.** **33** **Div****i****si****o****n:** Supreme Court of Nigeria **D****at****e** **o****f** **Judgment:** 2 March 2007 **C****as****e** **Num****b****er:** SC 26/2006 **Before:** Idris Legbo Kutigi; Umaru Atu Kalgo; Niki Tobi; Aloma Mariam Mukhtar; Mahmud Mohammed; Walter Samuel Nkanu Onnoghen; Ikechi Francis Ogbuagu, JJSC **I****SS****U****E****S** _Wh_ _e_ _th_ _e_ _r_ _th_ _e_ _o_ _r_ _i_ _gi_ _n_ _a_ _l_ _j_ _u_ _ri_ _s_ _d_ _i_ _ct_ _i_ _o_ _n_ _o_ _f_ _t_ _h_ _e_ _S_ _up_ _r_ _em_ _e_ _C_ _ou_ _r_ _t_ _u_ _n_ _de_ _r_ _s_ _ec_ _t_ _io_ _n_ _23_ _2_ _o_ _f_ _th_ _e_ _1_ _9_ _9_ _9_ _Co_ _n_ _st_ _i_ _tu_ _t_ _i_ _o_ _n_ _ha_ _d_ _b_ _ee_ _n_ _p_ _r_ _o_ _pe_ _r_ _l_ _y_ _invoked_ _b_ _y_ _Kano_ _State_ _(__the_ _plaintiff)_ _h_ _aving_ _regard_ _to_ _the_ _nature_ _of_ _the_ _purported_ _d_ _ispute_ _w_ _ith_ _t_ _he_ _F_ _ederation_ _of_ _Nigeria_ _(the_ _defendant)_ _a_ _s_ _disclosed_ _in_ _the_ _statement_ _of_ _claim._ _Wh_ _e_ _t_ _h_ _e_ _r_ _t_ _he_ _r_ _e_ _w_ _a_ _s_ _a_ _d_ _i_ _s_ _p_ _u_ _t_ _e_ _be_ _t_ _w_ _e_ _e_ _n_ _t_ _h_ _e_ _F_ _e_ _d_ _er_ _a_ _t_ _i_ _o_ _n_ _o_ _f_ _N_ _i_ _ge_ _r_ _i_ _a_ _a_ _n_ _d_ _K_ _a_ _n_ _o_ _S_ _t_ _at_ _e_ _t_ _o_ _j_ _u_ _s_ _t_ _i_ _f_ _y_ _th_ _e_ _Su_ _p_ _r_ _e_ _m_ _e_ _C_ _ou_ _r_ _t_ _e_ _x_ _e_ _r_ _c_ _i_ _si_ _n_ _g_ _its_ _original_ _jurisdiction_ _to_ _enterta_ _in_ _the_ _clai_ _m_ _o_ _f_ _the_ _plaintiff._ _Whether_ _t_ _he_ _Inspector-General_ _of_ _Police_ _had_ _a_ _cted_ _a_ _s_ _agent_ _for_ _a_ _nd_ _on_ _be_ _half_ _of_ _the_ _F_ _ederal_ _Government_ _o_ _r_ _w_ _hether_ _the_ _Inspector-General_ _of_ _Police_ _had_ _acted_ _within_ _its_ _own_ _powers_ _as_ _conferred_ _by_ _section_ _215_ _of_ _the_ _1999_ _Constitution._ **F****ACT****S** _The_ _plaintiff's_ _a_ _ction_ _ar_ _ose_ _f_ _rom_ _t_ _he_ _op_ _eration_ _of_ _th_ _e_ _Kan_ _o_ _Sta_ _te_ _Hi_ _sbah_ _Board_ _La_ _w_ _No_ _._ _4_ _of_ _2_ _003_ _a_ _nd_ _Ka_ _no_ _St_ _ate_ _H_ _isbah_ _(Amendment)_ _Law_ _No._ _6_ _of_ _2005._ _Under_ _section_ _7_ _of_ _Law_ _No._ _4,_ _the_ _Hisbah_ _Corps_ _were_ _established_ _in_ _Kano_ _State_ _with_ _the_ _duties_ _and_ _responsibilities_ _set_ _out_ _in_ _subsection_ _(4)_ _of_ _that_ _section,_ _some_ _very_ _similar_ _to_ _those_ _of_ _the_ _Nigerian_ _Police,_ _such_ _as_ _assisting_ _police_ _in_ _the_ _areas_ _of_ _prevention,_ _detection_ _and_ _reporting_ _of_ _offences,_ _handling_ _non-lethal_ _weapons_ _(like_ _ba_ _tons)_ _and_ _a_ _ssisting_ _in_ _tr_ _affic_ _co_ _ntrol._ _The_ _I_ _nspector-General_ _of_ _P_ _olice_ _f_ _ormed_ _the_ _view_ _that_ _the_ _Hisbah_ _Corps_ _i_ _n_ _Kano_ _State_ _had_ _usurped_ _the_ _powers_ _and_ _d_ _uties_ _of_ _the_ _Nigeria_ _Police_ _under_ _the_ _Police_ _Act_ _and_ _the_ _Constitution._ _He_ _issued_ _a_ _press_ _statement_ _challenging_ _the_ _Hisbah_ _Board_ _Law_ _and_ _arrested_ _th_ _e_ _top_ _commanders_ _of_ _th_ _e_ _Hisbah_ _Cor_ _p_ _and_ _charge_ _d_ _them_ _i_ _n_ _court._ _Aggrieve_ _d_ _b_ _y_ _th_ _e_ _actio_ _n_ _o_ _f_ _th_ _e_ _Inspector-Gener_ _a_ _l_ _o_ _f_ _Po_ _l_ _ice_ _,_ _Kan_ _o_ _Stat_ _e_ _o_ _f_ _Nigeri_ _a_ _fil_ _e_ _d_ _a_ _civ_ _i_ _l_ _sui_ _t_ _i_ _n_ _th_ _e_ _S_ _u_ _prem_ _e_ _Cour_ _t_ _invoking_ _the_ _court's_ _original_ _jurisdiction_ _against_ _the_ _Federation_ _of_ _Nigeria;_ _claiming_ _both_ _declaratory_ _and_ _injunctive_ _reliefs._ _T_ _he_ _Inspector-General_ _of_ _Police_ _was_ _not_ _j_ _oined_ _a_ _s_ _a_ _party._ **HELD** **L****e****a****d****i****n****g** **j****u****d****g****m****e****n****t** by Mahmud Mohammed, JSC with I.L. Kutigi; U.A. Kalgo; N. Tobi; A.M. Mukhtar; W.S.N. Onnoghen and I.F. Ogbuagu, JJSC **1****.** **Duty** **of** **Court** **to** **give** **literal** **meaning** **to** **section** **232** **of** **1999** **Constitution** The duty of the courts is to interpret the words contained in the Constitution in their ordinary literal meaning. The provisions of section 232 of the 1999 Constitution are quite clear, and it would be wrong for a court to go outside the words to attach any other meaning. Per Mohammed, JSC at 38. **2****.** **Police,** **not** **Federal** **Government,** **was** **opposed** **to** **Hisbah** **Board** **Law** The plaintiff's statement of claim (paragraphs 17-18) showed that it was the Inspector-General of police who was directly opposed to the Hisbah Board Law and took action against its operators. The statement of claim did not state that the Federal Government of Nigeria, whether through the President or the Attorney-General of the Federation, had taken action against the Hisbah Board Law or the Kano State Government itself. Per Kalgo, JSC at 49. **3****.** **State** **or** **Federation** **may** **be** **sued** **only** **if** **directly** **involved** The Attorney-General of a State or the Federation could be sued in a civil claim, but this could only happen where the claim is directly against the State or Federal Government concerned. In this case, the Federal Government was not directly concerned and no relief was sought against it. Therefore the provisions of section 232 of the 1999 Constitution did not support the action. Per Kalgo, JSC at 49. **4****.** **Absence** **of** **jurisdiction** **renders** **proceedings** **null** **and** **void** Where a court had no jurisdiction to entertain a claim, anything done in respect of the claim would be an exercise in futility and the proceedings would be rendered a nullity. Per Mohammed, JSC at 38. **5****.** **Section** **2****12** **of** **1****979** **C****onstitution** **i****s** **in** **p****ari** **m****ateria** **with** **section** **232** **of** **1999** **Constitution** Section 232 of the 1999 Constitution is _in_ _pari_ _materia_ with the provisions of section 212 of the 1979 Constitution. Per Mohammed, JSC at 38. **6****.** **Original** **jurisdiction** **of** **Supreme** **Court** **can** **be** **invoked** **in** **a** **dispute** **between** **Federation** **and** **State** To invoke the original jurisdiction of the Supreme Court there must be a dispute between the Federation and one or more States or between States themselves, and the character of the dispute must involve a question of fact or law on which the existence of a legal right depends. Per Mohammed, JSC at 38. **7****.** **Dispute** **not** **established** **with** **the** **Federation** While the plaintiff had clearly established a dispute, it had not established a dispute with the Federation of Nigeria. Per Mohammed, JSC at 38. **8****.** **No** **dispute** **between** **Kano** **State** **and** **the** **Federation** **in** **terms** **of** **section** **232** **of** **Constitution** The word "Federation" in section 232 of the 1999 Constitution bears the same meaning as "Federal Republic of Nigeria" or "Federation of Nigeria". The plaintiff's claim did not accuse the Federation of Nigeria or the Federal Republic of Nigeria of taking any action against the Hisbah Law of Kano State or the operation of the Hisbah Corps in Kano State; or of arresting and detaining commanders of the Hisbah Corps in Kano State. There was no dispute between Kano State in its status as a component unit of the Federation and the unit of the Federation itself. Per Mohammed, JSC at 38. **9****.** **State's** **claim** **against** **police** **justiciable** **in** **various** **courts** **of** **first** **instance** The statement of claim disclosed a dispute between the Government of Kano State and its agencies and the Government of the Federation through the Inspector-General of Police and Minister of Information, exercising their power or authority on behalf of the government of the Federation. The venue for settlement of such disputes (i.e. against Inspector-General of Police and Minister of Information), was in the various courts of first instance whose jurisdictions were clearly outlined in the same 1999 Constitution - and not the Supreme Court. Per Mohammed, JSC at 38. **10****.** **A****bse****n****c****e** **o****f** **j****u****sti****c****ia****b****l****e** **di****s****put****e** The relief claimed by the plaintiff was against the Inspector-General of Police who was not subject to the original jurisdiction of the Supreme Court. The jurisdiction of that Court could not be invoked in the absence of a justiciable dispute between the parties and where the defendant was not the Federal Republic of Nigeria. Per Mohammed, JSC at 38. **11****.** **O****r****ig****i****n****a****l** **j****u****r****is****d****i****c****t****i****o****n** **o****f** **Su****p****r****e****m****e** **C****o****ur****t** **d****i****s****t****i****n****gu****i****s****h****e****d** **f****r****o****m** **or****i****g****i****n****a****l** **j****u****r****is****d****i****c****t****i****o****n** **o****f** **Fe****d****e****r****a****l** **H****i****g****h** **Co****u****r****t** The original jurisdiction of the Supreme Court could be distinguished from the original jurisdiction of the Federal High Court under section 251(l)(_p_), (_q_) and (_r_) dealing with civil actions against the Federal Government or any of its agencies regarding issues of administration or the management and control or the interpretation of the Constitution as it affected the Federal Government or any of its agencies. Per Mohammed, JSC at 38. **12****.** **S****t****a****t****u****s** **o****f** **t****h****e** **S****u****p****r****e****m****e** **C****ou****r****t** To entertain the action would result in reducing the status and function of the Supreme Court to that of the Federal High Court, contrary to the spirit and intention of the Constitution. Per Mohammed, JSC at 38. _Yu_ _s_ _u_ _f_ _O_ _._ _A_ _l_ _i_ _S_ _A_ _N_ ; with him _K.K._ _Eleja_ _Esq.__,_ _A.T._ _Uwais_ _Esq.__,_ _R.O._ _Balogu_ _n_ _Esq.,_ _J.I_ _._ _Jacobs_ _(Miss_ _)_ and _S.O._ _Babakebe_ _Esq._ , for the plaintiff _Mr_ _s_ _A.O_ _._ _M_ _b_ _ama_ _l_ _i_ ; Acting Director of Civil Litigation Federal Ministry of Justice, for the defendant. **Th****e** **f****o****llow****i****n****g** **ca****s****e****s** **we****r****e** **ref****e****rre****d** **t****o** **i****n** **t****h****i****s** **j****u****dgme****n****t****:** **N****i****g****e****r****i****a** _Ad_ _e_ _y_ _e_ _m_ _i_ _&_ _o_ _t_ _h_ _e_ _r_ _s_ _v_ _O_ _p_ _e_ _y_ _o_ _r_ _i_ (1976) 9-10 SC 31 _Attorney-Genera_ _l_ _o_ _f_ _Anamb_ _r_ _a_ _Stat_ _e_ _&_ _1_ _3_ _o_ _ther_ _s_ _v_ _Attorney-Genera_ _l_ _o_ _f_ _th_ _e_ _Federatio_ _n_ _&_ _1_ _6_ _other_ _s_ (1994) 3 NWLR (Part 335) 659; (1994) 4 SCNJ 30 _A_ _t_ _t_ _o_ _r_ _ne_ _y_ _-__G_ _en_ _e_ _r_ _a_ _l_ _o_ _f_ _A_ _n_ _a_ _m_ _br_ _a_ _S_ _t_ _at_ _e_ _&_ _o_ _t_ _h_ _er_ _s_ _v_ _A_ _t_ _t_ _or_ _n_ _e_ _y_ _-__G_ _en_ _e_ _r_ _a_ _l_ _o_ _f_ _t_ _h_ _e_ _F_ _ed_ _e_ _r_ _a_ _ti_ _o_ _n_ _&_ _o_ _t_ _he_ _r_ _s_ (1993) 6 NWLR (Part 302) 692; (1994) 3 NWLR (Part 335) 659; (1994) 4 SCNJ 30 _Attorney-General_ _o_ _f_ _An_ _ambra_ _S_ _tate_ _v_ _Att_ _orney-General_ _o_ _f_ _t_ _he_ _Federation_ (2005) 9 NWLR (Part 931) 572; (2005) 5 SCNJ 38; (2005) 5 SC (Part 1) 73 _Attorney-General_ _of_ _Be_ _ndel_ _Stat_ _e_ _v_ _Attorney-General_ _o_ _f_ _th_ _e_ _Fed_ _eration_ _&_ _2_ _2_ _others_ (1981) 10 SC 1; (1981) 3 NCLR _Attorney-General_ _of_ _Lagos_ _State_ _v_ _Attorney-General_ _of_ _the_ _Federation_ (2004) 18 NWLR (Part 904) 1; (2004)12 SCNJ 1; (2004) 11-12 SC (Part 85) _Att_ _o_ _rn_ _e_ _y-G_ _e_ _ne_ _r_ _a_ _l_ _o_ _f_ _On_ _d_ _o_ _S_ _t_ _at_ _e_ _v_ _At_ _t_ _orn_ _e_ _y-__G_ _ene_ _r_ _a_ _l_ _o_ _f_ _th_ _e_ _Fe_ _d_ _er_ _a_ _tio_ _n_ (1983) 2 SCNLR 296 _Attorney-General_ _o_ _f_ _th_ _e_ _Fe_ _deration_ _v_ _Attorne_ _y-General_ _o_ _f_ _Abi_ _a_ _Stat_ _e_ _&_ _3_ _5_ _other_ _s_ (2001) 6 MJSCN; (2001) 7 SCNJ 1 _Attorn_ _e_ _y-Gene_ _r_ _a_ _l_ _o_ _f_ _th_ _e_ _Fed_ _e_ _ratio_ _n_ _v_ _A_ _t_ _torney_ _-__Genera_ _l_ _o_ _f_ _I_ _m_ _o_ _Stat_ _e_ (1983) 4 NCLR 178 _Badejo_ _v_ _Federal_ _Ministe_ _r_ _o_ _f_ _Educat_ _ion_ _&_ _oth_ _ers_ (1996) 8 NWLR (Part 464) 15 _G_ _overn_ _o_ _r_ _o_ _f_ _Kad_ _u_ _n_ _a_ _S_ _t_ _at_ _e_ _v_ _Pr_ _e_ _siden_ _t_ _o_ _f_ _th_ _e_ _Feder_ _a_ _l_ _Re_ _p_ _ubli_ _c_ _o_ _f_ _Nigeri_ _a_ (1981) 2 NCLR 786 _G_ _overn_ _o_ _r_ _o_ _f_ _Ogu_ _n_ _St_ _a_ _t_ _e_ _v_ _Pre_ _s_ _iden_ _t_ _o_ _f_ _th_ _e_ _Federa_ _l_ _Re_ _p_ _ubli_ _c_ _o_ _f_ _Nigeri_ _a_ (1982) 3 NCLR 538 _Gov_ _e_ _rn_ _o_ _r_ _o_ _f_ _On_ _d_ _o_ _S_ _t_ _at_ _e_ _v_ _P_ _r_ _es_ _i_ _de_ _n_ _t_ _o_ _f_ _t_ _h_ _e_ _F_ _ed_ _e_ _ra_ _t_ _io_ _n_ (1985) 6 NCLR 681 _Madukolu_ _&_ _others_ _v_ _Nkemdilim_ _&_ _others_ (1962) 2 SCNLR 341; (1962) NSCC 374; 1962 1 All NLR 587 _N_ _a_ _f_ _i_ _u_ _Ra_ _b_ _i_ _u_ _v_ _S_ _t_ _a_ _t_ _e_ (1980) 8-11 SC 130 _Obioh_ _a_ _v_ _Pres_ _i_ _den_ _t_ _o_ _f_ _t_ _h_ _e_ _Fed_ _e_ _ra_ _l_ _R_ _e_ _publi_ _c_ _o_ _f_ _Nig_ _e_ _ri_ _a_ (1981) 2 NCLR 701 _O_ _j_ _o_ _-__A_ _j_ _a_ _o_ _&_ _O_ _t_ _h_ _e_ _r_ _s_ _v_ _P_ _o_ _p_ _o_ _o_ _l_ _a_ _A_ _j_ _a_ _o_ _&_ _o_ _t_ _h_ _e_ _r_ _s_ (1986) 5 NWLR (Part 45) 802 _O_ _zom_ _o_ _v_ _Bende_ _l_ _Stat_ _e_ (1986) 4 NWLR (Part 36) 448 _P_ _residen_ _t_ _o_ _f_ _t_ _h_ _e_ _Fede_ _r_ _a_ _l_ _Repu_ _b_ _li_ _c_ _o_ _f_ _Nigeri_ _a_ _v_ _G_ _overno_ _r_ _o_ _f_ _Kan_ _o_ _Stat_ _e_ (1982) 3 NCLR 819 _Tuku_ _r_ _v_ _Governmen_ _t_ _o_ _f_ _Gongol_ _a_ _Stat_ _e_ (1989) 4 NWLR (Part 117) 517 **Fo****r****ei****g****n** _Curtis_ _v_ _Stovin_ (1869) 22 G.B.D. 513 _United_ _States_ _v_ _Classic_ 313 U.S. 299 **T****h****e** **f****o****l****l****o****wi****n****g** **s****t****a****t****u****t****e****s** **w****er****e** **re****f****e****r****r****e****d** **t****o** **i****n** **t****h****i****s** **j****ud****g****m****e****n****t****:** **N****i****g****e****r****i****a** Constitution of the Federal Republic of Nigeria, 1979: S 212(1), (2)(_a_), (_b_), (_c_) Constitution of the Federal Republic of Nigeria, 1999: Ss 3(1); 4(6); 7; 100; 214; 215(2); (4), (5); 216; 232(1), (2); 251(1)(_p_), (_q_), (_r_); 318; First Schedule, Part 1 Kano State Hisbah Board No.4 of 2003: S 7(4) Kano State Hisbah Board (Amendment) Law No. 6 of 2005 Police Act (Cap. 359 LFN 1990) **MOHAMMED,** **JSC** **(DELIVERED** **THE** **LEADING** **JUDGMENT):-** In this Civil suit, Kano State of Nigeria as the plaintiff claims against the Federation of Nigeria by a Writ of Summons dated and filed the same day 13 February 2006 in the registry of this Court accompanied by a statement of claim claiming a number of reliefs in paragraph 31 thereof as follows:- "31. WHEREOF the plaintiff claims as follows - 1\. DECLARATION that the Kano State Hisbah Board Law No. 4 of 2003 (hereinafter referred to as Law No. 4) and the Kano State Hisbah Board (Amendment) Law No. 6 of 2005 (hereinafter referred to as Law No. 6) were regularly made by the Kano State House of Assembly, duly assented to by the Governor of Kano State, they are Legal, Lawful and Constitutional _._ 2\. DECLARATION that Law No. 4 and Law No. 6 were made by the Kano State House of Assembly for peace, order and goodgovernment of Kano State, the Laws _ar_ _e_ _ther_ _e_ _for_ _e_ _val_ _i_ _d_ _,_ _l_ _awfu_ _l_ _,_ _l_ _e_ _ga_ _l_ _an_ _d_ _con_ _s_ _titu_ _t_ _ional_ _._ 3\. DECLARATION that Law No. 4 and Law No. 6 aforesaid were made in accordance with the powers vested in the Kano State House of Assembly by the provisions of section 4(6) and (7) of the Constitution of the Federal Republic of Nigeria, 1999. 4\. DECLARATION that Law No. 4 and Law No. 6 were made by the Kano State House of Assembly and assented to by the Governor of Kano State in accordance with the provisions of section 100 of the Constitution of the Federal Republic of Nigeria, 1999 and all other powers in that behalf. 5\. DECLARATION that the defendant, his agents or privies have no power nor authority to declare as unconstitutional any of the provisions of Law No. 4 and Law No. 6 without a court order or pronouncement to that effect. 6\. DECLARATION that all the provisions of Law No. 4 and Law No. 6 are valid, extant and operate until otherwise declared. 7\. INJUNCTION restraining the defendant by himself, his agents, or privies, in particular the Inspector General of Police from disturbing, stopping, disrupting or in any other manner stop the full operations of Law No. 4 and Law No. 6 by taking any step whatsoever in the stoppage of the full implementation of the said Laws. 8\. INJUNCTION restraining the defendant by himself, his agents, or privies and in particular the Inspector-General of Police from arresting, harassing or intimidating any person in the lawful execution of and/or implementation of the provisions of Law No. 4 and Law No. 6 respectively. 9\. ORDER directing the defendant by himself, his agents or privies to stop forthwith any interference with the lawful implementation of the provisions of Law No.4 and Law No.6 and in particular to stop the arrest and or prosecution of any official of Kano State Government in the lawful execution and implementation of the provisions of the said laws. 10\. AND for such further or other reliefs as the court may find the plaintiff entitled to." The plaintiff was purported to have brought this suit against the defendant under the original jurisdiction of this Court prescribed by section 232 of the 1999 Constitution of the Federal Republic of Nigeria. The suit came before this Court for hearing on 29 June 2006 and adjourned to 23 November 2006, for further hearing on which date judgment was reserved for delivery on 23 February 2007. However, on 8 January 2007, the parties were recalled by this Court when their learned Counsel were given the opportunity to address this Court on whether the original jurisdiction of this Court under section 232 of the 1999 Constitution was properly invoked by the plaintiff in this suit having regard to the nature of the dispute disclosed in the plaintiff's writ of summons and the statement of claim. In other words, this Court _suo_ _motu_ raised the issue of jurisdiction and asked the parties through their learned Counsel to satisfy