Preamble
Pursuant to section 25 of the Universities and University Colleges Act 1971, the respondent is deemed to be a university established under the 1971 Act, albeit the University of Malaya Act 1961 continues to have application. [40] Under section 3 of the University of Malaya Act 1961, its constitution known as the Constitution of the University of Malaya 1997 has force of law. The constitution can be found in P.U.(A) 444/2010 [originally P.U. (A) 104/1972 repealed by P.U. (A) 107/1997 which was in turn repealed and replaced by P.U.(A) 444/2010] [the Constitution]. Like all such bodies, it functions as a public learning institution for higher education where administrative, academic, disciplinary matters of students, staff, officers and 16 employees of quasi-judicial character abound. In fact, the respondent is a body corporate with powers spelt out in section 4 of the Constitution. [41] Much of the respondent’s affairs or business is regulated by statute, even the business of running degree courses or conferring degrees, diplomas, certificates and other academic distinctions including external degrees, diplomas, certificates and other academic distinctions upon persons who have followed courses of study approved by the University and have satisfied such other requirements as may be prescribed by rules – see section 4(1)(b) of the Constitution. [42] Sections 31(a) and 32 confer powers on the University’s Board of Directors to make rules on the principles governing the award of degrees, diplomas and higher degrees. Pursuant to such powers, the Board of Directors of the University of Malaya enacted University of Malaya (Degree of Doctor of Philosophy) Rules 2007. [43] Under rule 17, the Senate is empowered to make regulations for the purposes of carrying into effect or enforcing the provisions of the Rules. The Senate enacted the University of Malaya (Degree of Doctor of Philosophy) Regulations 2007. [44] Both the University of Malaya (Degree of Doctor of Philosophy) Rules 2007 [The Rules] and the University of Malaya (Degree of Doctor of Philosophy) Regulations 2007 [The Regulations] apply to all candidates, including the appellant who registered on 16.10.1996, for the degree of Doctor of Philosophy. 17 [45] Consequently, the exercise of any of its statutory powers is always justiciable and within the supervisory jurisdiction of the Courts. It is only in the exercise of the Court’s supervisory powers over such institutions that the Court may exercise some restraint, depending on the issues or matters in complaint. The restraint is also in the remedies sought, particularly for a mandamus order. [46] In my opinion, the facts and circumstances in the present appeal do not, at all, fall in that category. In any case, the exercise of any particular power under consideration must always be within its prescribed limits. The respondent, without exception, does not have unfettered discretion and must exercise legal restraint at all times when exercising its powers. Often quoted are the hallowed and wise dicta pronounced by Raja Azlan Shah CJ in Pengarah Tanah dan Galian, Wilayah Persekutuan v Sri Lempah Enterprise Sdn Bhd [1979] 1 MLJ 135: “Unfettered discretion is a contradiction in terms … Every legal power must have legal limits, otherwise there is dictatorship. In particular, it is a stringent requirement that discretion should be exercised for a proper purpose and that it should not be exercised unreasonably. In other words, every discretion cannot be free from legal restraint; where it is wrongly exercised, it becomes the duty of the Courts to intervene. The Courts are the only defence of the liberty of the subject against departmental aggression. In these days when government departments and public authorities have such great powers and influence, this is the most important safeguard for the ordinary citizen: so that the Courts can see that these great powers and influence are exercised in accordance with law. I would once again emphasize what has often been said before, that ‘public bodies must be compelled to observe the law and it is essential that bureaucracy should be kept in its place…” [47] The learned Judge found that the respondent was entitled to require the appellant to date his thesis to be as of 2017, as laid down in the Guidelines; 18 and that pursuant to regulation 35(1) of the Regulations, it was up to the Senate and thereby the respondent to determine whether or not the appellant is to be conferred his PhD. Reading regulation 35(1) with section 22(5) of the Constitution, the learned Judge concluded that the Senate had the power to fail the appellant for not meeting the requirements of the Guidelines. [48] That conclusion can only be of some merit if the Guidelines have the same force as the Constitution, statutes, Rules and Regulations. They are not. [49] Section 4(1)(c) of the Constitution provides the respondent with the power to confer degrees, diplomas, certificates and other academic distinctions including external degrees, diplomas, certificates and other academic distinctions upon students who have followed any the approved courses of study and have satisfied other requirements as may be prescribed by rules. Pursuant to section 22(5) of the Constitution, the Senate is the academic body of the respondent and “subject to the provisions of this Constitution, the statutes, rules and regulations”, the Senate “shall have the control and general direction of instruction, research and examination, and the award of degrees, diplomas, certificates and other academic distinctions”. [50] It is clear from the dictates of sections 4(1)(c) and 22(5) that the terms and conditions for the conferment of degrees, diplomas etc. are as prescribed by the Constitution, statutes, rules and regulations. Although the Senate is the specific body charged with the control and responsibility on the award of such degrees, that mandate is also subject to the provisions of the Constitution, statutes, rules and regulations. As already pointed out earlier, 19 specific rules and regulations have been passed to regulate all matters pertaining to the Degree of Doctor of Philosophy, namely the University of Malaya (Degree of Doctor of Philosophy) Rules 2007 and the University of Malaya (Degree of Doctor of Philosophy) Regulations 2007. [51] The Rules and Regulations are fairly comprehensive. [52] The Rules contain 10 Parts providing for what I would say, all matters relating to the Degree of Doctor of Philosophy, from the programme of study and admission requirements to matters concerning registration, payment, duration and structure of programme of study, language requirements, examinations and graduation as well as other general matters such as termination of candidature and exemptions. The Regulations, too, provide for such matters, but in greater detail going into matters concerning supervision, thesis, examinations, graduation, appeal and readmission before finally providing on general matters concerning the Senate’s powers and non-graduating students. The Senate does not appear to have any power to enact or issue Guidelines; it only has power to make regulations – see rule 17. [53] As for the Regulations, regulation 42 only provides the Senate with the power to “make, repeal or amend any regulations governing the Degree programme of study as provided under these Regulations. Any new regulations repeal or amendment to the said regulations shall be made known to the candidates before the commencement of the candidate’s academic session.” Since the Guidelines were only issued in 2015 while the appellant commenced his academic session in 1996 and completed it in 2006, the Guidelines which the respondent rely on, do not apply to the appellant. 20 [54] In my view, the Guidelines in any event, do not apply to the appellant and certainly, not to his peculiar facts and circumstances for several other reasons. [55] In the first place and as already pointed out, the Guidelines do not fall within the meaning and scope of the “provisions of the Constitution, statutes, rules and regulations” referred to in sections 4(1)(c) and 22(5) of the Constitution. The principle of expressio unius est exclusio alterius [express mention of a thing in a contract or piece of legislation excludes all others] will prevail over any suggestion of the application of the principle of sui generis. It is only to the Constitution, Rules and Regulations that the condition(s) imposed by the Senate must be examined. [56] Next, the Guidelines do not have the force of law, operating more as general administrative guidelines. As indicated in its “Preface”, the Guidelines were due to the “initiative” of the Institute of Graduate Studies (IGS), intended to “assist candidates to meet the minimal format requirements set by the University to complete the final form of a research report, dissertation or thesis”; with a caution that “the format may differ in each individual faculty, academy, institute or centre with its own additional requirements.” Consequently, the Guidelines are couched in broad terms, and this is reflected, for instance, at section 2 on the Sequence of Contents, that the structure of the research report, dissertation or thesis is based on a standard format which contains the three main sections of Preface, Main Text and Supplementary. In section 2.1.1, dealing with the “Title Page”, it is stated that this page is the first page after the front cover and should include a) the final research title which has been approved by the Faculty; b) name of candidate according to the registration records; c) the statement according to the mode 21 of programme, and the year of submission. Section 3.1.9 explained that the year of submission “must be in accordance to the year when the research report/dissertation/thesis is submitted”. [57] In my view, the Rules or the Regulations must contain that basic requirement of printing the year of submission before the Guidelines may properly make that claim that it is drafted to assist candidates “meet the minimal format requirements set by the University to complete the final form of a research report, dissertation or thesis”. There is no such requirement, be it in the Rules or the Regulations, leaving the Guidelines without any authoritative force. [58] I must add that IGS does not in my view, equate to a university authority or committee as found in Part III of the Constitution to render the Guidelines that it had issued to be of equal or similar status with the Rules and Regulations. The power provided in section 21(13) for a committee to regulate its own procedure at its own meetings is far from amounting to a power to issue Guidelines. [59] The learned Judge readily accepted the respondent’s submission that the Guidelines have binding force, only because they appear to have been insisted by the Senate. However, even the Senate cannot make this requirement on the printing of the year of submission as it is not provided for in the Rules or even the Regulations. What the Rules and Regulations instead provide are these. [60] In Part VIII of the Rules are the provisions for examinations as provided for in the Regulations. In Part VII of the Regulations, there are provisions for 22 the determination of the title of the thesis, language of the thesis, and the submission of the thesis where matters such as the format, number of words, and the requirement of a statement of the candidate’s work to be signed, are set out. Specifically, regulation 19(3) spells out the format of the thesis: