Abstract
The Electoral Commission and the Auditor-General are prominent autonomous constitutional bodies in Ghana that have their heads appointed by the President and removed in accordance with the 1992 Constitution of Ghana. With their distinct functions, these bodies have been set up to carry out politically neutral roles, aimed at promoting transparency, probity and accountability in governance. To ensure their neutrality, the Constitution has made provisions to ensure that they are operationally autonomous, financially independent and protected from arbitrary removal from office in the discharge of their lawfully defined duties. This chapter examines the independence or otherwise of these autonomous constitutional bodies. We argue that despite the constitutional safeguards, there are still significant gaps that could allow the President to control the operations of these bodies. That the President appoints the heads of these bodies and plays a role in their removal, for example, could be a breeding ground for excessive executive control of these autonomous bodies. It is therefore necessary that relevant parts of the 1992 Constitution be amended to prevent presidential intrusion in their appointment and removal processes.
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Notes
- 1.
The Provisional National Defence Council (PNDC) under the leadership of Flt. Lt. Jerry John Rawlings ruled Ghana for a period of 11 years (31 December 1981–7 January 1993).
- 2.
The autonomous constitutional bodies in Ghana include Electoral Commission (EC), Commission on Human Rights and Administrative Justice (CHRAJ), the office of the Auditor-General, National Commission for Civic Education (NCCE), National Media Commission, Public Service Commission and Lands Commission.
- 3.
See articles 46, 187(7)(a), 225 & 234 of the 1992 Constitution.
- 4.
See articles 54, 187(14), 227, & 239 of the 1992 Constitution; See also William Brown v Attorney-General & Others Writ No J1/1/2009 (Supreme Court, 3 February 2010).
- 5.
They are removed in accordance with the procedure laid down in article 146 of the Constitution.
- 6.
It must however be noted that their functions and structure are expanded upon by Acts of Parliament as specifically required by the Constitution. See Electoral Commission Act,1993 (Act 451), Audit Service Act, 2000 (Act 584).
- 7.
Writ No J1/1/2009 (Supreme Court, 3 February 2010) 52.
- 8.
Ibid.
- 9.
National Media Commission, Public Service Commission and Lands Commission do not fall within this category and will accordingly not be discussed in this paper. Although Commission on Human Rights and Administrative Justice and the National Commission for Civic Education fall within the category, they will not be included in this paper because the authors did not discover any immediate issues with them, unlike the Electoral Commission and the Auditor-General.
- 10.
‘Domelevo Replies Akufo-Addo: Proceed on Leave Directive Is Unconstitutional’ (Graphic Online, 3 July 2021). https://www.graphic.com.gh/news/general-news/domelevo-responds-to-akufo-addo-s-directive-to-proceed-on-leave.html, accessed on 27 September 2021.
- 11.
Kenneth Darko, ‘Thanks for Your Service-Akuffo-Addo Directs Retirement of Domelovo’ (My Joy Online, 3 March 2021). https://www.google.com/amp/s/www/myjoyonline.com/thanks-for-your-service-akuffo-addo-directs-retirement-of-domelovo/amp/, accessed on 4 August 2021.
- 12.
Cass R Sunstein, ‘Liberal Constitutionalism and Liberal Justice Response’ (1993) 72 Texas Law Review 305, 309.
- 13.
Ibid.
- 14.
See a 1992 Constitution of Ghana, art 45(a).
- 15.
Article 45(b) of the 1992 Constitution, art 45(b). See also article 47 of the 1992 Constitution for the conditions the EC must satisfy in demarcating boundaries and limitations on the power of the EC to create electoral boundaries.
- 16.
1992 Constitution, 45(c); see articles 49 and 50 of the 1992 Constitution for the manner in which the elections or referenda must be organised. For instance, it is stated under article 49(1) that the voting at any public election or referendum shall mandatorily be by ‘secret ballot’.
- 17.
E Kofi Abotsi, Constitutional Law of Ghana: Text, Cases & Commentary (2017) 382.
- 18.
For a person to be qualified to vote in a public election or referendum, the person must be a ‘citizen of Ghana of eighteen years of age or above and of sound mind’ and be duly registered as a voter under article 42 of 1992 Constitution.
- 19.
Electoral Commission of Ghana, ‘History of the Commission’. https://ec.gov.gh/history/, accessed 2 December 2021.
- 20.
Ibid.
- 21.
Emmanuel Gyimah-Boadi, ‘Modelling Success: Governance and Institution-Building in Africa: The Case of Ghana’s Electoral Commission’ (2017) The Consortium for Development Partnerships 3.
- 22.
Ibid.
- 23.
Ibid.
- 24.
1992 Constitution, arts 43 & 70(2).
- 25.
1992 Constitution, art 44; See also 1992 Constitution, art 99 on the qualifications of a Member of Parliament.
- 26.
1992 Constitution. arts 44(2) & (3).
- 27.
1992 Constitution. art 44(5).
- 28.
1992 Constitution. art 44(4).
- 29.
1992 Constitution. art 52.
- 30.
Corporate Information on Ghana Audit Service. https://ghaudit.org/elibrary/index.php/corporate-information, accessed on 3 December 2021.
- 31.
Ibid.
- 32.
Ibid.
- 33.
Ibid.
- 34.
1992 Constitution, art 70.
- 35.
The immediate past Auditor-General, Mr. Daniel Domelevo, is a professional accountant and has been a member of the Institute of Chartered Accountants, Ghana since 1992. See https://ghaudit.org/web/about-us-new/, accessed on 20 September 2020. He was preceded by Mr. Richard Quartei Quartey (2009–2016) who was also a chartered accountant. See also Français Pyccкий Español, ‘Mr. Richard Quartei Quartey (Ghana)—Vice Chair’. https://www.un.org/ga/iaac/content/biographical-notes-1, accessed on 20 September 2020. Information on the official website of the Ghana Audit Service shows that all Auditor-Generals appointed since 1951 all had an accounting background.
- 36.
1992 Constitution, art 187(7)(b).
- 37.
Ibid.
- 38.
Ibid.
- 39.
See Audit Service Act, 2000 (Act 584), s 10(4); See also Appiah Ofori v The Attorney- General [2010] 2 GLR 294, 355.
- 40.
Act 584, s 10(9).
- 41.
1992 Constitution, art 190; See also Act 584, s 2.
- 42.
https://ghaudit.org/web/2018/05/06/department-profile/, accessed on 20 September 2020.
- 43.
1992 Constitution, art 189.
- 44.
Act 584, s 4.
- 45.
Leonard L Sesa, ‘A Comparative Study of the Challenges of Being Independent: Case Studies (Botswana Independent Electoral Commission and Electoral Commission of Zambia)’ 33 Politea 16.
- 46.
Articles 46, and 187(7)(a), of the 1992 Constitution, arts 46 & 187(7)(a).
- 47.
William Brown and Another v Attorney General Writ No J1/1/2009 (Supreme Court, 3 February 2010) p 52.
- 48.
Suit No/ J1/9/2020 (Supreme Court, 25 June 2020) 10.
- 49.
Ibid.
- 50.
1992 Constitution, art 189(2).
- 51.
William Brown (n 4) 51.
- 52.
1992 Constitution, art 296. See National Democratic Congress and Another v Electoral Commission and Another Suit No/ J1/9/2020 (Supreme Court, 25 June 2020).
- 53.
1992 Constitution, art 187(5).
- 54.
1992 Constitution, art 187(8).
- 55.
1992 Constitution, art 295(8).
- 56.
Sam (No 2) v The Attorney-General[2000] SCGLR 42; Abu Ramadan v Electoral Commission and another (No 2) [2015–2016] 1 SCGLR 1.
- 57.
Ibid.
- 58.
1992 Constitution, arts 54 & 187(14).
- 59.
William Brown (n 4) 52.
- 60.
Ibid.
- 61.
Ibid.
- 62.
1992 Constitution, art 179(2)(b).
- 63.
William Brown (n 4) 28.
- 64.
Ibid.
- 65.
Ibid.
- 66.
William Brown (n 4) 7.
- 67.
Ibid.
- 68.
Ibid., 52.
- 69.
Ibid., 55.
- 70.
1992 Constitution, arts 44(2), 187(13), 228 & 236.
- 71.
1992 Constitution, art 146(3).
- 72.
1992 Constitution, art 146(1).
- 73.
1992 Constitution, art 146(3).
- 74.
1992 Constitution, art 146(4).
- 75.
Ibid.
- 76.
1992 Constitution, art 146(5).
- 77.
1992 Constitution, art 146(9).
- 78.
1992 Constitution, art 70.
- 79.
In Ghana Bar Association and others v the Attorney General and Judicial Council, Consolidated suit nos. J1/26/2015, J1/21/2015 and J1/22/2015 at 8, the Supreme Court held that the President is not bound by any advice given him by the Council of State.
- 80.
Under article 89 of the 1992 Constitution, in addition to 3 specified members that the President appoints in consultation with Parliament, he appoints 11 members without any stated criteria for doing so or without any organ of the State checking the competence or otherwise of those appointed.
- 81.
Emmanuel Debrah, ‘Measuring Governance Institutions’ Success in Ghana: The Case of the Electoral Commission, 1993–2008’ 2011 (70) African Studies 25, 34.
- 82.
Ibid.
- 83.
Ibid.
- 84.
1992 Constitution, art 146.
- 85.
A 1992 Constitution, art 144(1).
- 86.
Although the 2020 Parliamentary election shows a different narrative, it is nevertheless submitted that it is just one instance. In any event, this argument still holds, considering that it is possible that the party of the President might have majority in Parliament in the future. If this occurs, the problem of Parliament voting along political lines is likely to persist.
- 87.
1992 Constitution, art 78.
- 88.
1992 Constitution, art 146.
- 89.
Ibid.
- 90.
‘We Want New Voters Register: NPP Insists’ (Graphic Online, 14 January 2016). https://www.graphic.com.gh/news/politics/we-want-new-voters-register-npp-insists.html, accessed on 24 September 2020.
- 91.
Enoch Darfah Frimpong, ‘NDC Making ‘Baseless Allegations’ on Names Missing from Voters Register—Evans Nimako’ (Graphic Online, 22 September 2020). https://www.graphic.com.gh/news/politics/ndc-making-baseless-allegations-on-names-missing-from-voters-register-evans-nimako.html, accessed on 24 September 2020.
- 92.
Hadiza Nuhhu-Billa Quansah, ‘Political Diversity Keeping It in the Family’ (Graphic Online, 13 January 2017). https://www.graphic.com.gh/features/features/political-diversity-keeping-it-in-the-family.html, accessed on 24 September 2020.
- 93.
Abu Ramadan & Evans Nimako v The Electoral Commission & Anor Civil Appeal No J1/14/2016. The Supreme Court however refused to order the EC to compile new register because, according to the Court, the errors in the voters’ register were not grave enough to soil the credibility of the entire register.
- 94.
Enoch Darfah Frimpong, ‘The 27 Claims Made Against Charlotte Osei and the Responses’ (Graphic Online, 22nd July, 2017). https://www.graphic.com.gh/news/politics/the-27-claims-made-against-charlotte-osei-and-the-responses.html, accessed on 24 September 2020.
- 95.
Mynewsgh.com, ‘Akuffo Addo’s Blood Ties to Sophia and Gloria Akuffo Dates 300 Years Back-Obiri Boahen’ (GhanaWeb, 7 November 2019). https://mobile.ghanaweb.com/GhanaHomePage/NewsArchive/Akuffo-Addo-s-blood-ties-to-Sophia-and-Gloria-Akuffo-dates-300-years-back-Obiri-Boahen-796966, accessed 5 August 2021.
- 96.
Sophia Akuffo Is Ghana’s New Chief Justice (Starrfmonline.com, May 12, 2017). https://starrfm.com.gh/2017/05/sophia-akuffo-is-ghanas-new-chief-justice/, accessed 5 August 2021.
- 97.
Enoch Darfah Frimpong, ‘Why Charlotte Osei and Two EC Deputies Were Sacked—CJ’s Report’ (Graphic Online, 29 June, 2018). https://www.graphic.com.gh/news/politics/the-report-that-recommended-removal-of-charlotte-osei-and-deputies.html, accessed on 24 September 2020.
- 98.
George Nyavor, ‘New Voters’ Register Exercise Will Go Ahead Despite Coronavirus Scare—EC’ (Myjoyonline.com, 17 March, 2020). https://www.myjoyonline.com/news/new-voters-register-exercise-will-go-ahead-despite-coronavirus-scare-ec/, accessed on 24 September 2020.
- 99.
Kenneth Awotwe Darko, ‘Support EC in New Voters’ Register Compilation Bid—John Boadu to Political Parties’ (Myjoyonline.com, 16 April 2020). https://www.myjoyonline.com/news/support-ec-in-new-voters-register-compilation-bid-john-boadu-to-political-parties/, accessed on 27 September 2020.
- 100.
‘Domelevo Replies Akufo-Addo: Proceed on Leave Directive Is Unconstitutional’ (Graphic Online, 3 July 2021). https://www.graphic.com.gh/news/general-news/domelevo-responds-to-akufo-addo-s-directive-to-proceed-on-leave.html, accessed on 27 September 2020.
- 101.
Kenneth Darko, ‘Thanks for Your Service-Akuffo-Addo Directs Retirement of Domelovo’ (My Joy Online, 3 March 2021). https://www.google.com/amp/s/www/myjoyonline.com/thanks-for-your-service-akuffo-addo-directs-retirement-of-domelovo/amp/. accessed on 4 August 2021.
- 102.
Nii Larte Lartey, ‘Akufo-Addo Directs Domelevo to Proceed on Accumulated Leave Beginning July 1’ (Citi Newsroom, 2nd August, 2021). https://citinewsroom.com/2020/06/akufo-addo-directs-domelevo-to-proceed-on-accumulated-leave-beginning-july-1/, accessed on 27 September 2020.
- 103.
Section 20(1) of Act 651 provides that: ‘In an undertaking every worker is entitled to not less than fifteen working days leave with full pay in a calendar year of continuous service’.
- 104.
[2000] SCGLR 1.
- 105.
William Brown (n 70) 10.
- 106.
‘Osafo Maafo Moves to Challenge $1m Surcharge by Auditor-General’ (Myjoyline.com, 11 December 2019). https://www.myjoyonline.com/news/politics/osafo-maafo-moves-to-challenge-1m-surcharge-by-auditor-general/, accessed on 29 September 2020.
- 107.
Ibid.
- 108.
News Desk Report, ‘Acting A-G Has Not Cleared Senior Minister’ (Graphic Online, 7 July 2020). https://www.graphic.com.gh/news/general-news/ag-a-g-has-not-cleared-senior-minister.html, accessed on 29 September 2020.
- 109.
Ibid.
- 110.
Daisy Palinwinde Jacobs, ‘Akufo-Addo Should Have Asked Domelovo to Stay on as Auditor-General—Vitus Azeem’ (Citi Newsroom, 7 March 2021). https://citinewsroom.com/2021/03/akufo-addo-should-have-asked-domelovo-to-stay-on-as-auditor-general-vitus-azeem/, accessed on 2 August 2021.
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Cases *(to be added to the domestic cases in the Front Matter)
Abu Ramadan v Electoral Commission and another (No 2) [2015–16] 1 SCGLR 1.
Abu Ramadan & Evans Nimako v The Electoral Commission & Anor Civil Appeal No J1/14/2016.
Appiah Ofori v The Attorney- General [2010] 2 GLR 294.
Ghana Bar Association and others v the Attorney General and Judicial Council, Consolidated suit nos. J1/26/2015, J1/21/2015 and J1/22/2015.
National Democratic Congress and Another v Electoral Commission and Another Suit No/ J1/9/2020 (Supreme Court, 25 June 2020).
National Media Commission v Attorney- General [2000] SCGLR 1.
Sam (No 2) v The Attorney-General [2000] SCGLR 42.
William Brown v Attorney-General & Others Writ No J1/1/2009 (Supreme Court, 3 February 2010).
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Ndur, K.T., Fobi, O. (2022). Safeguarding the Independence of Autonomous Constitutional Bodies in Ghana. In: Addadzi-Koom, M.E., Addaney, M., Nkansah, L.A. (eds) Democratic Governance, Law, and Development in Africa. Palgrave Macmillan, Cham. https://doi.org/10.1007/978-3-031-15397-6_11
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