THE SUPREME COURT OF APPEAL OF SOUTH AFRICA
JUDGMENT

REPORTABLE
Case no: 050/2012

In the matter between:

THE TRUSTEES FOR THE TIME BEING OF THE
CHILDREN’S RESOURCE CENTRE TRUST             First Appellant
THE TRUSTEES FOR THE TIME BEING OF
THE BLACK SASH TRUST

Second Appellant
CONGESS OF SOUTH AFRICAN TRADE
UNIONS

Third Appellant
NATIONAL CONSUMER FORUM

Fourth Appellant
TASNEEM BASSIER

Fifth Appellant
BRIAN MPAHLELE

Sixth Appellant
TREVOR RONALD GEORGE BENJAMIN
Seventh Appellant
NOMTHANDAZO MVANA

Eighth Appellant
FARIED ALBERTUS

Ninth Appellant
and
PIONEER FOOD (PTY) LTD

First Respondent
TIGER CONSUMER BRANDS LTD

Second Respondent
PREMIER FOODS LTD

Third Respondent
LEGAL RESOURCES CENTRE

Amicus Curiae
Neutral citation: Children’s Resource Centre Trust v Pioneer Food
(50/2012) [2012] ZASCA 182 (29 November 2012)

Coram:
NUGENT, PONNAN, MALAN, TSHIQI et WALLIS JJA.
Heard:
7 November 2012
Delivered: 29 November 2012
Summary:  Class action – when permissible – requirements for
commencement of class action – cartel in bread industry fixing bread
price – entitlement of non-governmental community organisations and
individual consumers to institute action on behalf of all consumers –
requirements in regard to cause of action and representation – definition
of class – cause of action raising a triable issue – common issue –
representation.

ORDER

On appeal from:  Western Cape High Court, Cape Town (Van Zyl AJ
sitting as court of first instance):

The appeal against the refusal to certify a class action in respect
of the national complaint and the class 2 claimants is dismissed.
The appeal against the refusal to certify a class action in respect
of the Western Cape complaint and the class 1 claimants is
upheld and the application is remitted to the high court for
determination in accordance with the principles in this
judgment.
The order of the high court is set aside and replaced with the
following order:
(a) If the applicants choose to pursue the application they are
granted leave to supplement their papers within two months of
this order by delivering supplementary affidavits, to which are
annexed a draft set of particulars of claim in respect of their
delictual claim against the respondents, embodying such further
evidence as they deem meet in amplification of that claim.
(b) The respondents are to deliver such further answering
affidavits as they deem meet within four weeks of the date for
delivery of the affidavits referred to in para (a) of this order.
(c) The applicants are afforded two weeks thereafter to deliver
their replying affidavits, if any.
(d) The costs of the application are reserved.

Each party is ordered to pay his, her or its own costs of this
appeal.

JUDGMENT

WALLIS JA (NUGENT, PONNAN, MALAN et TSHIQI JJA
concurring)
[1] When may a class action be brought and what procedural
requirements must be satisfied before it is instituted? These two questions
confront this court in litigation arising from an investigation by the
Competition Commission (the Commission) into the bread producing
industry, initially in the Western Cape, and later in four other provinces in
South Africa. In the light of the outcome of that investigation the
appellants applied to the Western Cape High Court for the certification of
a class action in which they proposed to pursue a claim for damages
against the respondents. That application was dismissed and leave to
appeal was refused. Such leave was granted on petition to this court. The
determination of the appeal requires that we address the two questions I
have described. To that end we heard detailed argument in this and a
related application over two days and were furnished with copious
reference materials. That has assisted in illuminating the path for us in
this novel area of procedural law and it is appropriate at the outset to
express our gratitude to counsel for their assistance.

Background
[2] A brief sketch of the Commission‘s investigation and the
functioning of the bread market is necessary to provide the setting for the
present litigation. In 2006 the respondents,1 to whom I will refer as

1 Pioneer Food (Pty) Ltd, Tiger Consumer Brands Ltd and Premier Foods Ltd.

Pioneer, Tiger and Premier respectively, were the three largest bread
producers in the Western Cape. At that time and for a considerable period
prior to that they, together with Foodcorp,2 were the four largest bread
producers in South Africa. In December 2006, the Commission received
complaints in relation to the apparently co-ordinated implementation of
price increases in the Western Cape, in conjunction with apparently co-
ordinated changes in the terms upon which the producers dealt with bread
distributors, who supplied the informal sector of the bread market. It then
commenced an investigation in relation to the Western Cape in terms of
the Competition Act 89 of 1998 (the Act). Premier came forward and
disclosed details of anti-competitive conduct in which it had engaged
together with the other three bread producers, not only in the Western
Cape but also in other parts of the country. It sought and was granted
leniency in terms of the Commission‘s corporate leniency policy.3

[3] The disclosures by Premier led to the Commission instituting a
further investigation in relation to other parts of the country, which was
referred to, somewhat misleadingly, as the national complaint. Tiger
entered into a settlement agreement with the Commission in relation to
conduct in both the Western Cape and under the national complaint.
Foodcorp entered into a similar agreement in relation to the national
complaint only. Both settlements were confirmed in orders of the
Competition Tribunal (the Tribunal). They involved the payment of
administrative penalties of nearly R99 million in the case of Tiger and
about R45 million in the case of Foodcorp. The complaints in respect of
Pioneer were referred to the Tribunal for adjudication. At the end of a
lengthy hearing it was found to have perpetrated anti-competitive conduct

2 Foodcorp (Pty) Ltd.
3 The corporate leniency policy was dealt with recently in the judgment of this court in Agri Wire (Pty)
Ltd v The Competition Commissioner [2012] ZASCA 134 (660/2011); [2012] 4 All SA 365 (SCA).

in relation to both the Western Cape and the national complaint.
Administrative penalties totalling nearly R 196 million were imposed
upon it. It appealed against that decision but the matter was resolved
before the hearing of the appeal. We were not told the basis for that
resolution.

[4] The bread producers do not sell bread directly to the public. They
determine list prices at a national level. The retail market has three
elements. They are the large national supermarket chains, which purchase
some 25 to 30 per cent of these bread producers‘ total production, smaller
general retailers, and an informal sector that obtains supplies of bread
from resellers, who are distributors who purchase bread for onward sale
to informal retail outlets. Strictly speaking the resellers are wholesalers
not retailers. Each producer‘s list price provides the basis for negotiating
the prices at which they supply retailers with bread. With the large
national customers these negotiations take place at a national level. With
other customers they take place at a regional level, subject to some
constraints and a degree of national oversight. The price actually paid by
the retailers is determined on the basis of a discount, expressed as a
percentage, of the list price. There is no direct control by the bread
producers of the prices at which bread is sold in the retail market.

[5] The
following conduct
gave
rise
to
the
Commission‘s
investigation. On 6 December 2006 the respondents‘ representatives in
the Western Cape met and informed one another of the increases in the
list price of bread determined by their respective national head offices. A
date for implementation of the increases was agreed upon. At the same
time it was agreed that discounts afforded to distributors would be
restricted to 90 cents per loaf in Paarl and 75 cents per loaf in the Cape

Peninsula and that the bread producers would not deal with one another‘s
distributors. The effect of this was, indirectly, to fix the price of bread and
trading conditions in contravention of ss 4(1)(b)(i) and (ii) of the Act. The
national complaint was more diffuse and less clear-cut. It involved
agreements in terms of which bakeries were sold by one large bread
producer to another, resulting in the purchaser achieving dominance in a
particular region; meetings on various occasions and at various places
where bread prices in relation to particular areas were discussed or
agreed, or the date of increases in bread prices in that region were agreed;
and agreements not to poach one another‘s customers. It is apparent from
the description of these meetings in the tribunal‘s determination of the
Pioneer complaint that these anti-competitive activities were sporadic
during a lengthy period; did not always involve all of the bread producers
and were frequently restricted to relatively small regions or even specific
places.4 Like the Western Cape they involved contraventions of
ss 4(1)(b)(i) and (ii) of the Act. The determination by the tribunal that
these provisions of the Act were contravened provides the foundation for
the claims that are sought to be advanced in the proposed class action.

[6] Three of the appellants are NGOs that work among children, the
poor and the disadvantaged, of whom there are so many in our society.
The fourth, COSATU, is the largest trade union federation in South
Africa. The other five are individuals who were consumers of bread in the
Western Cape at the time of the conduct that gave rise to the competition
complaint. All of these individuals had limited means and would have
been adversely affected by any increase in the price of bread. In that

4 The one agreement related to the Vanderbijlpark area alone. The bakery sales related to the Free State
and Mpumalanga and did not involve Premier. An agreement in relation to price increases was
confined to Gauteng.

sense they are typical of many consumers of bread in both the Western
Cape and the country as a whole.

The proposed class action
[7] Mr Solomon, the Centre Coordinator of the Children‘s Resource
Centre, deposed to the founding affidavit. He alleged that the
respondents‘ unlawful conduct had breached the rights of both bread
consumers and bread distributors in the Western Cape, but expressly
confined the scope of the application to consumers.5 In regard to the
national complaint he accepted that the Western Cape court lacked
jurisdiction to deal with it.6 In the result there were no allegations in his
affidavit concerning the national complaint, its consequences or the
identity of the persons injured by the conduct giving rise to the national
complaints. Reverting to the Western Cape he alleged that:
‗Every consumer who bought their products during the period in question suffered
damages as a result of the unlawful price fixing and other prohibited practices.‘
Mr Solomon said that the proposed class action was to be brought ‗on
behalf of the consumers for compensation and related relief‘. He said that
most were not in a position to afford to engage in litigation and that each
individual‘s claim was too small to justify litigation as an individual, but
that collectively the claims of consumers were ‗for a very large sum of
money‘. That is hardly surprising, as he claimed that ‗literally millions of
bread consumers in the Western Cape‘ had been affected by the unlawful
conduct and that for practical purposes this amounted virtually to the
public at large in the Western Cape.

5 The related application, heard at the same time as this case, was brought by a Mr Mukkadam on
behalf of distributors. Judgment in that matter will be handed down simultaneously with this judgment.
6 It is irrelevant whether this view was correct.

[8] Thus far the proposed action was expressed as one in which the
claims of bread consumers against the respondents would be consolidated
and dealt with in a single action with the appellants representing the
interests of the consumers. However, there was an important shift in
emphasis when Mr Solomon came to deal with the relief to be claimed in
the action. He said this:
‗The damages which each individual bread consumer suffered are of the nature of
things, very small. If a global sum of damages was awarded in respect of the unlawful
conduct of the respondents, the cost of distributing to each consumer his or her share
of those damages would be prohibitive and not viable. The further problem which
would arise would be to establish precisely how much of the respondents‘ bread each
individual consumer bought during the period in question. For this reason, in this
class action the applicants will seek class relief, in the form of an order which will
require the respondents to pay the unlawful overcharge into a trust or trust or similar
institutions to be established for the benefit of the bread consumers who suffered
damages.
This relief was adapted in the appellants‘ heads of argument and is dealt
with in para 80 below.

[9] Having set out the basis for the proposed action in these terms, Mr
Solomon claimed that the conduct of the respondents had infringed the
constitutional right of all people in South Africa to sufficient food in
terms of s 27(1)(b) of the Constitution. He invoked the section on the
basis that it embodied a negative obligation on the respondents not to
impair the right of access to sufficient food. His principal purpose in
doing so appears to have been to bring the claim squarely within the
provisions of s 38(c) of the Constitution that provides for class actions to
be brought in respect of infringements of or threats to rights in the Bill of
Rights. The reference to the right to sufficient food did not add anything
to the cause of action or the contention that the anti-competitive conduct

of the respondents had caused damage to consumers of bread and that this
gave rise to claims against the respondents for damages.

The application in the high court
[10] Based on these allegations the appellants applied as a matter of
urgency for the issue of a rule nisi calling upon the respondents to show
cause against an order;
‗Declaring that all bread consumers in the Western Cape Province (“the consumers”)
who were prejudicially affected by bread prices in consequence of the respondents‘
breach of section 4(1)(b)(i) and (ii) of the Competition Act … constitute members of a
class.‘
The draft order went on to say that the class would be an ‗opt out‘ class
and a declarator was sought that the members of the class would be
bound by the judgment in the class action, unless they notified the
appellants‘ attorneys that they wished to be excluded as members of the
class. The other significant orders sought were a declaration that the
appellants, duly assisted by their attorneys, to the extent necessary, had
the requisite standing to bring the class action ‗on behalf of the
consumers for damages‘ pursuant to the findings of the Commission and
the Tribunal and an authorisation for the commencement of the action
forthwith without waiting for the return day of the rule nisi. The
remaining portions of the proposed rule nisi were largely procedural in
nature and dealt with notice to the members of the class, discovery and
other matters that depended on the grant of the primary relief.

[11] The notice of motion was issued on 18 November 2010 and the
application was heard on 23 and 25 November 2010. During the hearing
the appellants were granted leave to amend the opening paragraph of the
prayer, quoted above, by inserting the words ‗or elsewhere‘ after

‗Western Cape Province‘, presumably with a view to incorporating the
national complaint. No additional affidavits were filed. In view of the
urgency of the matter only short affidavits were delivered on behalf of the
respondents. That procedure was adopted on the footing that the
respondents could present their case on the return date. The order
dismissing the application was made on 26 November 2010.

[12] The result of this is that there is no evidence from the appellants in
regard to the composition of the class in respect of the national complaint
or the manner in which they propose to conduct that litigation. All we
have is the description of the national complaint in the Tribunal‘s
determination in relation to Pioneer We do not have full answering
affidavits from the respondents in regard to the factual issues in respect of
both complaints and the practical issues before the court. There is a
further complication because the appellants accepted in their heads of
argument that the certification originally sought was deficient. Instead
they are now seeking a final order certifying two different classes
described as follows:
‗Class 1;
All persons who purchased the bread of the first, second or third
respondents in the Western Cape Province during the period 18 December 2006 to
6 January 2009.
Class 2:
All persons who purchased the bread of the first, second or third
respondents in Gauteng, Free State, North-West or Mpumalanga Province during the
period 1 September 1999 to 6 January 2009‘
In the course of oral argument these orders were further amended by
inserting the words ‗for personal consumption‘ after the word
‗respondents‘ in each class. In addition the end date of the period in
respect of class 1 was changed to 14 February 2007 and in respect of
class 2 to 8 May 2008.

[13] We were thus asked to answer entirely novel questions, having
potentially far-reaching implications for the respondents and our
procedural law, in the absence of a complete set of affidavits and to grant
relief different from that sought from the high court. This will not matter
if the respondents‘ arguments prevail and we are satisfied that this is not a
case that can, on any basis, be permitted to proceed as a class action. In
that event the appeal must fail. However, if there is some merit in the
appellants‘ application, but it does not satisfy all the requirements we
now prescribe for the commencement of a class action, it would be
patently unfair to deny them relief on a final basis without affording them
the opportunity to address matters that would have been addressed had
they been aware of those requirements. On the other hand it would be
equally unfair to uphold their appeal and make a final order before the
respondents have had an opportunity to present their case fully. It would
also be inappropriate for the court to set in train this type of novel
litigation without all the relevant facts before it. That must affect the
manner in which we dispose of the appeal. The court raised with counsel
the possibility of an order remitting the matter to the high court, with
leave to file further affidavits and we received submissions on that.
Whether that is an appropriate order is a matter to which I will revert after
dealing with the merits. First it is necessary to deal with the
circumstances in which our law permits a class action to be brought and
the requirements for doing so.

Class actions
[14] South African law is familiar with proceedings in which a number
of potential plaintiffs join together in one action to pursue claims against
one or more defendants on the basis that the common issues of fact and

law in relation to their claims make such a joinder appropriate.7 It is also
familiar with the notion of a representative plaintiff, as in the case of an
action pursued by a guardian or curator ad litem on behalf of a minor or
person under disability. In some at least of those instances the court steps
in to appoint the representative because the individual is unable to do so.
However, it has not, until recently, recognised an action in which a
representative brings proceedings on behalf of a group of persons who
have not authorised the representative to act on their behalf. Such actions
trace their roots back to the principles of equity in England, were
developed in the United States of America and have spread to a number
of jurisdictions around the world.8 They are generally referred to as class
actions. There is now express provision for class actions in s 38(c) of the
Constitution, which provides that:
‗Anyone listed in this section has the right to approach a competent court, alleging
that a right in the Bill of Rights has been infringed or threatened, and the court may
grant appropriate relief, including a declaration of rights. The persons who may
approach a court are –
…
(c)
anyone acting as a member of, or in the interest of, a group or class of
persons.‘

[15] The South African Law Commission, in line with many other
jurisdictions to which we have been referred, proposed that the
procedures applicable to class actions be prescribed by statute, and to that
end prepared a draft bill.9 However, Parliament has not yet acted on its
recommendations or those of a judicial commission of enquiry which

7 Uniform Rule 10. In admiralty proceedings it is expressly permitted to bring proceedings under a
collective title such as ‗the cargo laden and lately laden on board the MV …‘ (Admiralty Rule 2(3)).
8 World Class Actions: A Guide to Group and Representative Actions around the Globe (ed Paul G
Karlsgodt) (Oxford, 2012) lists 38 jurisdictions plus the European Union with some or other form of
class action. The majority of these regulate class actions by special legislation or rules of court.
9 South African Law Commission, Project 88, The Recognition of Class Actions and Public Interest
Actions in South African Law, August 1998.

made a similar recommendation.10 Academic voices over many years
have likewise not been heard.11 The utility of a class action in certain
circumstances is clear.12 We are thus confronted with a situation where
the class action is given express constitutional recognition, but nothing
has been done to regulate it. The courts must therefore address the issue
in the exercise of their inherent power to protect and regulate their own
process and to develop the common law in the interests of justice.13 This
may on some occasions involve us, and courts that will follow the
guidance we give, in having to devise ad hoc solutions to procedural
complexities on a case by case basis – a possibility referred to by the
Supreme Court of Canada14  – but the failure to pass appropriate
legislation dealing with this topic leaves us little alternative in the face of
the constitutional endorsement of class actions. In what follows we will
give guidance as to the approach to be adopted in these cases. But first it
is necessary to have clarity as to the essential nature of a class action.

[16] In class actions the party bringing the action does so, on behalf of
the entire class, every member of which is bound by the outcome of the
action, so that a separate action by a member of the class after judgment

10 Commission of Enquiry into the Affairs of the Masterbond Group and Investor Protection in South
Africa, Vol 3, Chapter 16 by Mr Justice H C Nel.
11 F R Malan ‗Siviele proses, verbruikersbeskerming en kollektiewe optrede‘ 1982 TSAR 1; Wouter de
Vos, ‗Reflections on the introduction of a class action in South Africa‘ 1996 (4) TSAR 639 at 642;
Wouter de Vos, ‗Is a class action a ―classy act‖ to implement outside the ambit of the Constitution?‘
2012 TSAR 737.
12 See the history and justification proffered by McLachlin CJC in Western Canadian Shopping
Centres Inc v Dutton [2001] SCC 46; 201 DLR (4th) 385 paras 19 – 29.
13 Section 173 of the Constitution. In Ngxuza & others v Permanent Secretary, Department of Welfare,
Eastern Cape, and Another  2001 (2) SA 609 (E) Froneman J crafted an order to give effect to a class
action that in due course received the approval of this court. Permanent Secretary, Department of
Welfare, Eastern Cape & another v Ngxuza & others 2001 (4) SA 1184 (SCA). However, the appeal
was argued on narrow grounds so that the general questions facing us were not canvassed in any detail.
14 Hollick v  Toronto (City) 2001 SCC 68; [2001] 3 SCR 158; 205 DLR (4th) 19 (SCC) para 14.

can be met with a plea of res judicata.15 The concept is most fully
defined, by Professor Mulheron,16 in the following terms:
‗A class action is a legal procedure which enables the claims (or parts of the claims)
of a number of persons against the same defendant to be determined in the one suit. In
a class action, one or more persons (―representative plaintiff‖) may sue on his or her
own behalf and on behalf of a number of other persons (―the class‖) who have a claim
to a remedy for the same or a similar alleged wrong to that alleged by the
representative plaintiff, and who have claims that share questions of law or fact in
common with those of the representative plaintiff (―common issues‖). Only the
representative plaintiff is a party to the action. The class members are not usually
identified as individual parties but are merely described. The class members are
bound by the outcome of the litigation on the common issues, whether favourable or
adverse to the class, although they do not, for the most part, take any active part in
that litigation.‘

[17] The class action serves to bring a number of separate claims
together in one proceeding. In other words it permits the aggregation of
claims. However, that is not its only function. Of equal or greater
importance, as Professor Silver points out,17 is the fact that the class
action is ‗a representational device‘. It is:
‗… a procedural device that expands a court‘s jurisdiction, empowering it to enter a
judgment that is binding upon everyone with covered claims. This includes claimants
who, not being named as parties, would not ordinarily be bound. A class-wide
judgment extinguishes the claims of all persons meeting the class definition rather
than just those of named parties and persons in privity with them, as normally is the
case.
Judges and scholars sometimes treat the class action as a procedure for joining absent
claimants to a lawsuit rather than as one that permits a court to treat a named party as

15 A separate action instituted during the pendency of the class action could be met with a plea of lis
pendens.
16 Professor Rachael Mulheron, The Class Action in Common Law Legal Systems: A Comparative
Perspective 3.
17 Charles Silver ‗Class Actions – Representative Proceedings‘ 5 Encyclopedia of Law and Economics
194.

standing in judgment on behalf of them. This is a mistake … Class members neither
start out as parties nor become parties when a class is certified.‘18

[18] Recognition of the representative nature of a class action has
important implications for determining the requirements for such actions.
If the action is representative it is essential to identify, not necessarily by
name but by description, those who are being represented. As it is their
rights that are to be adjudicated upon, they must either be given the
opportunity to be excluded from the class (to opt out) or they must be
required to join the class (to opt in). It is also necessary to identify the
representative and to determine both their suitability to act as such and
the basis upon which they will do so. The element of aggregation of
claims dictates that the claims brought together in the action, whilst not
necessarily identical, should raise common issues of fact or law, the
resolution of which will serve to resolve or enable the resolution of all
claims.

When may class actions be brought in South Africa?
[19] The Constitution, in s 38(c), recognises a class action specifically
in relation to infringements of or threats to rights guaranteed in the Bill of
Rights. That caused the appellants in this case to invoke s 27(1)(b) of the
Constitution. However, that was unnecessary. The class of people on
whose behalf the appellants seek to pursue claims, (leaving aside for the
present the definition of that class), is both large and in general poor. Any
claims they may have against the respondents are not large enough to
warrant their being pursued separately, so that it is improbable that any
lawyers would be willing to act for them on a contingency fee basis. If
those claims cannot be pursued by way of a class action, they are not

18 See also Debra Lyn Bassett ‗Constructing Class Action Reality‘ 2006 Brigham Young University
Law Review 1415 at 1417-8.

capable of being pursued at all. The effect of that is to engage the right of
access to courts vested in each of the members of the class by s 34 of the
Constitution. The threatened infringement of that right may be challenged
by way of a class action and the appropriate remedy is to permit a class
action in respect of the underlying claims. It was accordingly unnecessary
to seek in s 27(1)(b)an alternative peg on which to hang the entitlement to
proceed by way of a class action. The right to proceed in that way was
clear, subject to satisfying the other requirements for such an action.19

[20] Similar circumstances will be present in many other potential class
actions and the entitlement to proceed by way of a class action will be
clear. However, one can envisage circumstances in which parties may
wish to bring a class action, but are unable to contend that, if they are not
able to do so, their s 34 rights will be infringed. For example, the families
of passengers, killed when an aeroplane on an international flight crashes,
may be able to pursue litigation in their own interests and be unable to
point to a right in terms of the Bill of Rights that is infringed or
threatened as a result of the death of their family members. Similarly,
mortgagors, who contend that the financial institution from which they
have borrowed money has miscalculated the interest on their loans and
added impermissible charges, may be in a position to sue in a suitable
court to ventilate their claims. However, in both instances a class action
may be the most appropriate means for determining their claims.

[21] In my judgment it would be irrational for the court to sanction a
class action in cases where a constitutional right is invoked,20 but to deny

19 This approach largely accords with that advanced by the Legal Resources Centre, which was
admitted as amicus curiae.
20 As was done in Permanent Secretary, Department of Welfare, Eastern Cape & another v Ngxuza
and Others 2001 (4) SA 1184 (SCA).

it in equally appropriate circumstances, merely because of the claimants‘
inability to point to the infringement of a right protected under the Bill of
Rights. The procedural requirements that will be determined in relation to
the one type of case can equally easily be applied in the other. Class
actions are a particularly appropriate way in which to vindicate some
types of constitutional rights, but they are equally useful in the context of
mass personal injury cases or consumer litigation. I accordingly reject the
suggestion advanced in some of the academic writing, and in some of the
heads of argument, that we should await legislative action before
determining the requirements for instituting a class action in our law. The
legislature will be free to make its own determination when it turns its
attention to this matter and in doing so it may adopt an approach different
from ours. In the meantime the courts must prescribe appropriate
procedures to enable litigants to pursue claims by this means.

[22] Having said that, it is right to enter one caveat. It is that, within the
limited ambit of a class action as described earlier in this judgment, we
are only concerned to determine the broad parameters within which class
actions may be pursued and to lay down procedural requirements that
must be satisfied in order to do so. Where necessary we must develop the
common law in order to achieve this, for example, by expanding the
scope of the res judicata principle. But, as the international literature
shows, fundamental issues of policy may arise in determining the
structure of such actions and their consequences. The resolution of those
issues involves difficult policy choices that have received differing
answers in different jurisdictions. It is not for us, in laying down
procedural requirements, to make policy choices that may impinge upon,
or even remove, existing rights. That would be to trespass upon the
domain of the legislature, which the doctrine of the separation of powers

– fundamental to our constitutional order – does not permit us to do.
Against that background I turn to address the question of the
requirements for pursuing a class action in South Africa.

Requirements for a class action
Certification
[23] All of the parties accepted that it is desirable in class actions for the
court to be asked at the outset, and before issue of summons, to certify the
action as a class action. This involves the definition of the class; the
identification of some common claim or issue that can be determined by
way of a class action; some evidence of the existence of a valid cause of
action; the court being satisfied that the representative is suitable to
represent the members of the class; and the court being satisfied that a
class action is the most appropriate procedure to adopt for the
adjudication of the underlying claims. In my view they were correct to do
so and we should lay it down as a requirement for a class action that the
party seeking to represent the class should first apply to court for
authority to do so.21 My reasons for adopting that requirement are the
following.

[24] Most jurisdictions around the world require certification either
before institution of the class action or at an early stage of the
proceedings. The exception is Australia. The justifications are various.
First, in the absence of certification, the representative has no right to
proceed, unlike litigation brought in a person‘s own interests. Second, in

21 In Ngxuza and Others v Permanent Secretary, Department of Welfare, Eastern Cape & another
supra 624D-E Froneman J suggested that ‗the possibility of unjustified litigation can be curtailed by
making it a procedural requirement that leave must be sought from the High Court to proceed on a
representative basis prior to actually embarking on that road‘. In Firstrand Bank Ltd v Chaucer
Publications (Pty) Ltd 2008 (2) SA 592 (C) para 26 Traverso DJP said that this suggestion should be
followed in the future, which no doubt explains the applications in the two cases that served before us.

view of the potential impact of the litigation on the rights of others it is
necessary for the court to ensure at the outset that those interests are
properly protected and represented. Third, certification enables the
defendant to show at an early stage why the action should not proceed.
This is important in circumstances where the mere threat of lengthy and
costly litigation22 may be used to induce a settlement even though the
case lacks merit.23 Fourth, certification enables the court to oversee the
procedural aspects of the litigation, such as notice and discovery, from
the outset. Fifth, the literature on class actions suggests that, if the issues
surrounding class actions, such as the definition of the class, the existence
of a prima facie case, the commonality of issues and the appropriateness
of the representative are dealt with and disposed of at the certification
stage, it facilitates the conduct of the litigation, eliminates the need for
interlocutory procedures and may hasten settlement. Lastly the Australian
experience has not proved entirely satisfactory, with numerous
interlocutory applications and significant costs and delays being
experienced.24

[25] Accordingly in my judgment an application for certification of the
proposed action as a class action was necessary in the present case. As the
dismissal of the application finally disposed of the question whether the
appellants could institute such an action on behalf of the proposed class,
it was appealable.25 It is unnecessary for present purposes to determine
whether the grant of certification would be subject to an appeal or
whether it is a decision capable of alteration by the court of first instance

22 In Tiemstra v Insurance Corp of BC (1996) 22 BCLR (3d) 49 (SC) para 20 Esson CJSC said ‗class
actions have the potential for becoming monsters of complexity and cost‘.
23 Milton Handler 25 Years of Antitrust 864-5 (1973) wrote: ‗Any device which is workable only
because it utilises the threat of unmanageable and expensive litigation to compel settlement is not a rule
of procedure – it is a form of legalised blackmail.‘
24 Mulheron, op cit (fn 13), 23-29. SA Law Commission Report, fn 9 ante, para 5.5.
25 Zweni v Minister of Law and Order 1993 (1) SA 523 (A) 532I–533B.

and therefore not appealable. I turn next to consider the requirements for
a certification application.

[26] In the course of argument the presiding judge put to counsel the
following list of the elements that should guide a court in making a
certification decision. They were:

the existence of a class identifiable by objective criteria;

a cause of action raising a triable issue;

that the right to relief depends upon the determination of issues of
fact, or law, or both, common to all members of the class;

that the relief sought, or damages claimed, flow from the cause of
action and are ascertainable and capable of determination;

that where the claim is for damages there is an appropriate
procedure for allocating the damages to the members of the class;

that the proposed representative is suitable to be permitted to
conduct the action and represent the class;

whether given the composition of the class and the nature of the
proposed action a class action is the most appropriate means of
determining the claims of class members.
There is an element of overlapping in these requirements. For example,
the composition of the class cannot be determined without considering
the nature of the claim. The fact that there are issues common to a
number of potential claimants may dictate that a class action is the most
appropriate manner in which to proceed, but that is not necessarily the
case. A class action may be certified in respect of limited issues, for
example, negligence in a mass personal injuries claim, leaving issues
personal to the members of the class, such as damages, to be resolved
separately.

[27] This list corresponds substantially with the factors identified by the
Law Commission as the requirements for certification.26 It also overlaps
with what Cameron JA said were ‗the quintessential elements of a class
action‘, in dealing with a contention that a class had been inadequately
described, namely
‗… that (1) the class is so numerous that joinder of all its members is impracticable;
(2) there are questions of law and fact common to the class; (3) the claims of the
applicants representing the class are typical of the claims of the rest; and (4) the
applicants through their legal representatives, the Legal Resources Centre, will fairly
and adequately protect the interests of the class.‘27
Similar requirements are prescribed in Federal Rule 23(a) of the Federal
Rules of Civil Procedure in the United States of America, namely that the
class is so numerous that joinder of all its members is impracticable; that
there are questions of law or fact that are common to the class; that the
claims of the representative parties are typical of the claims of the class;
and that the representative parties will fairly and adequately represent the
interests of the class. These requirements are referred to as numerosity,
commonality,
typicality
and
adequate
representation.28
Similar
requirements are to be found in other jurisdictions.29

[28] Counsel did not dispute that these were the issues that require to be
addressed in an application for the certification of a class action and
directed their arguments at certain of them, primarily the definition of the
class; the nature and existence of the cause of action being advanced; the
commonality of the claims of members of the class; and the

26 Law Commission Report, ante, para 5.6, pp 41-50 and recommendation 11.
27 Permanent Secretary, Department of Welfare, Eastern Cape & another v Ngxuza & others 2001 (4)
SA 1184 (SCA) para 16.
28 Wal-Mart Stores, Inc, Petitioner v Betty Dukes et al 131 S Ct 2541 at 2550.
29 See Mulheron ante and Karlsgodt ante.

appropriateness of the relief being sought. Without excluding the
possibility of there being other issues that require consideration, it
suffices for our purposes to say that a court faced with an application for
certification of a class action must consider the factors set out in the list in
para 26 and be satisfied that they are present before granting certification.
I now address in greater detail some of these factors that are of particular
relevance for this case.

Class definition
[29]  In defining the class it is not necessary to identify all the members
of the class. Indeed, if that were possible, there would be a question
whether a class action was necessary, as joinder under Uniform Rule 10
would be permissible. It is, however, necessary that the class be defined
with sufficient precision that a particular individual‘s membership can be
objectively determined by examining their situation in the light of the
class definition. It is important to be able to do this for three reasons.
First, it affects the manner in which notice is given to the members of the
class. In the conventional situation of an ‗opt out‘ class the entitlement to
opt out is negated if people cannot ascertain with reasonable certainty
whether they are members of the class in the first place. Second, it is
necessary for people to know whether they can commence their own
litigation against the defendant or defendants in the class action. Third, it
is essential to the identification of those who are bound by the
judgment.30

[30]  Two problems with class definition that arise in this case are over-
inclusive definition and definition by subjective criteria. Where the class

30 Bywater v Toronto Transit Commission (1998) 27 CPC (4th) 172 (Ont. Gen. Div.); [1998] OJ No
4913 (Ont Gen Div); 2038724 Ontario Ltd v Quizno’s Canadian Restaurant Corp (2008) 89 OR (3d)
252 (SCJ).

suffers from these problems it impacts upon other elements relevant to
the certification decision. Thus if the class is too wide, as in an Australian
case31 where the original pleaded case included ‗every man, woman and
child who has been in this country between 1992 and 1999‘, the litigation
will be unmanageable because of the need to take the personal
circumstances of every person in the class into account. That indicates
that a class action is inappropriate.

[31] An over-inclusive class also raises the question whether there are
common issues of fact or law that can conveniently be resolved in the
class action in the interests of all members of the class. The broader the
class the less likely it will be that there is the requisite commonality. This
was one of the reasons for the majority refusing certification in Wal-Mart
Stores, Inc, Petitioner v Betty Dukes et al, the most recent decision of the
United States Supreme Court on class actions. The claim for certification
was denied because the statistical evidence of systemic discrimination
against the 1.5 million members of the class, consisting of women
employees from 1998 until the commencement of the litigation, scattered
across 3 400 stores employing 1 million people in 50 states (in respect of
14 of which there was no anecdotal evidence of discrimination at all),
was held to be inadequate. The sheer size of the class, the disparate
circumstances of its members and the fact that policy for dealing with
staffing issues was formulated by individual store managers, excluded the
existence of a common issue and precluded certification.32 That did not

31 Bray v Hoffman-La Roche Ltd [2003] FCA 1505.
32 The minority dissented on the commonality issue but concurred on another issue leading to the same
result. In Canada the class was held to be over inclusive in a claim for compensation for wrongful
dismissal where it was defined as including persons dismissed for just cause (Webb v K-Mart Canada
Ltd (1999), 45 O.R. (3d) 389 (Ont S.C.J.)). An amendment to the class definition remedied the
problem. Certification of a class action, in a claim against a school that it misrepresented the quality of
its education and thereby prejudiced its graduates in seeking employment, was refused on the basis that
the class included students who had found work after graduation without problems. (Mouhteros v
DeVry Canada Inc (1998), 41 O.R. (3d) 63 (Ont. Gen. Div.).

mean that some, even many, of the members of the class may not have
been the victims of discrimination. It meant only that the claim of
systemic discrimination, essential to the existence of a common issue for
determination in the class action, was insufficiently demonstrated.

[32]    The problem of certifying a class on the basis of subjective
factors is particularly manifest when the definition makes membership of
the class dependent upon the outcome of the litigation, for example,
because it is dependent upon the class member having suffered loss, or
dependent upon the ability of the defendant to raise defences to some
claims and not others. The point is illustrated by the case of Emerald
Supplies Ltd & another v British Airways PLC.33 The claimant claimed
that British Airways participated in illegal price fixing cartels operating in
the area of air freight charges. It sought redress for itself and all
consumers of international air freight services. The members of the class
were those persons who were direct or indirect purchasers of such
services at prices inflated artificially by the activities of the price fixing
cartels. Three different types of loss were identified as having potentially
been suffered by members of the class. Whether they had in fact suffered
such loss depended on the individual user and it was accepted that loss
would have to be proved individually. The claim was for a declaration
that British Airways was liable ‗in principle‘ to class members for the
three different forms of loss.

[33] The problem was that, until it had been established that the price
fixing cartels existed; that British Airways participated in them; and that
prices were artificially inflated thereby, it was impossible to identify any
member of the class. In addition, as the class included both direct and

33 Emerald Supplies Ltd & another v British Airways PLC [2010] EWCA Civ 1284.

indirect purchasers of such services, whether any particular purchaser had
suffered loss depended on whether the overcharge had been absorbed by
the direct purchaser in fixing its prices or passed on to an indirect
purchaser by way of a price enhancement. In a judgment by Mummery LJ
the entitlement to pursue the action as a representative action was
rejected. He said the following:
‗Judgment in the action for a declaration would have to be obtained before it could be
said of any person that they would qualify as someone entitled to damages against
BA. The proceedings could not accurately be described or regarded as a
representative action until the question of liability had been tried and a judgment on
liability given. It defies logic and common sense to treat as representative an action, if
the issue of liability to the claimants sought to be represented would have to be
decided before it could be known whether or not a person was a member of the
represented class bound by the judgment.‘34

[34] Any attempt to define a class must take account of these potential
pitfalls. The essential question will always be whether the class is
sufficiently identified that it is possible to determine at all stages of the
proceedings whether a particular person is a member of the class.

A cause of action raising a triable issue
[35] The appellants accepted that a class action should not be certified if
the case is ‗hopeless‘. I am not sure that this constitutes a sufficiently
clear standard to be applied on a case by case basis. Whether a case is

34 Para 63. In para 65 he added: ‗In brief, the essential point is that the requirement of identity of
interest of the members of the represented class for the proper constitution of the action means that it
must be representative at every stage, not just at the end point of judgment. If represented persons are
to be bound by a judgment that judgment must have been obtained in proceedings that were properly
constituted as a representative action before the judgment was obtained. In this case a judgment on
liability has to be obtained before it is known whether the interests of the persons whom the claimants
seek to represent are the same. It cannot be right in principle that the case on liability has to be tried
and decided before it can be known who is bound by the judgment. Nor can it be right that, with
Micawberish optimism, Emerald can embark on and continue proceedings in the hope that in due
course it may turn out that its claims are representative of persons with the same interest.‘ Mulheron,
ante, 329, fn 39 refers to a body of Canadian authority that highlights the same point.

hopeless has two aspects. It is hopeless if it is advanced on a basis that is
legally untenable. It is also hopeless if it is advanced in the absence of
any credible evidence to support it. These are categories that have long
been recognised in our law and practice. A case is legally hopeless if it
could be the subject of a successful exception. It is factually hopeless if
the evidence available and potentially available after discovery and other
steps directed at procuring evidence will not sustain the cause of action
on which the claim is based. In other words if there is no prima facie case
then it is factually hopeless.

[36] In my judgment these are the standards that should be applied in
assessing whether a proposed class action reflects a cause of action
raising a triable issue. I will deal with each in turn. Causes of action are
not in the first instance dependent on questions of law. They require the
application of legal principle to a particular factual matrix. The test on
exception is whether on all possible readings of the facts no cause of
action is made out. It is for the defendant to satisfy the Court that the
conclusion of law for which the plaintiff contends cannot be supported
upon every interpretation that can be put upon the facts.

[37] An issue raised in argument was how this test could be applied in
the context of a novel claim. The answer is that, provided the novel claim
is legally plausible, the standard is met and the claim survives scrutiny
and must be determined in the course of the action. Take a delictual claim
based on a novel legal duty not to act negligently.35 The existence of such
a duty depends on the facts of the case and a range of policy issues. The
need for the court to be fully informed in regard to the policy elements of

35 Minister of Safety and Security v Van Duivenboden 2002 (6) SA 431 (SCA) para 22; Trustees, Two
Oceans Aquarium Trust v Kantey & Templer (Pty) Ltd 2006 (3) SA 138 (SCA) paras 10 and 11.

the enquiry militate against that decision being taken without evidence.
As Hefer JA said: 36
‗As the judgments in the cases referred to earlier demonstrate, conclusions as to the
existence of a legal duty in cases for which there is no precedent entail policy
decisions and value judgments which ‗shape and, at times, refashion the common law
[and] must reflect the wishes, often unspoken, and the perceptions, often dimly
discerned, of the people‖ (per M M Corbett in a lecture reported sub nom ―Aspects of
the Role of Policy in the Evolution of the Common Law‖ in (1987) SALJ 104 at 67).
What is in effect required is that, not merely the interests of the parties inter se, but
also the conflicting interests of the community, be carefully weighed and that a
balance be struck in accordance with what the Court conceives to be society's notions
of what justice demands. (Corbett (op cit at 68); J C van der Walt ―Duty of care:
Tendense in die Suid-Afrikaanse en Engelse regspraak‖1993 (56) THRHR at 563-4.)
Decisions like these can seldom be taken on a mere handful of allegations in a
pleading which only reflects the facts on which one of the contending parties relies. In
the passage cited earlier Fleming rightly stressed the interplay of many factors which
have to be considered. It is impossible to arrive at a conclusion except upon a
consideration of all the circumstances of the case and of every other relevant factor.‘37

[38] That does not mean that certification should not be refused in an
appropriate case, where there is no prospect of a trial court, with the
benefit of all the evidence that the plaintiff can muster or suggest will be
available to it, holding that the claim is legally tenable. Sometimes the
test on exception can appropriately be applied in respect of novel legal
claims. Harms JA pointed that out in the following passage from his
judgment in Telematrix:38
‗[2] The plaintiff's particulars of claim, with annexures, runs to 158 pages and
contains a full exposition of the events surrounding the Directorate's decision. In
addition we were provided with the ASA's Code of Advertising Practice and
Procedural Guide and the parties, prudently, were content that regard could be had to

36 Minister of Law and Order v Kadir 1995 (1) SA 303 (A) 318E-I.
37 See also Axiam Holdings Ltd v Deloitte & Touche 2006 (1) SA 237 (SCA) para 25.
38 Telematrix, supra, paras 2 and 3.  Footnote references omitted.

it even though it does not form part of the pleadings. The case does not, therefore,
have to be decided on bare allegations only, but on allegations that were fleshed out
by means of annexures that tell a story. This assists in assessing whether or not there
may be other relevant evidence that can throw light on the issue of wrongfulness. I
mention this because, relying on the majority decision in Axiam Holdings Ltd v
Deloitte & Touche, the plaintiff argued that it is inappropriate to decide the issue of
wrongfulness on exception because the issue is fact-bound. That is not true in all
cases. This Court, for one, has on many occasions decided matters of this sort on
exception. Three important judgments that spring to mind are Lillicrap, Indac and
Kadir.   Some public policy considerations can be decided without a detailed factual
matrix, which by contrast is essential for deciding negligence and causation.
[3] Exceptions should be dealt with sensibly. They provide a useful mechanism to
weed out cases without legal merit. An over-technical approach destroys their utility.
To borrow the imagery employed by Miller J, the response to an exception should be
like a sword that 'cuts through the tissue of which the exception is compounded and
exposes its vulnerability'. Dealing with an interpretation issue, he added:
―Nor do I think that the mere notional possibility that evidence of surrounding
circumstances may influence the issue should necessarily operate to debar the Court
from deciding such issue on exception. There must, I think, be something more than a
notional or remote possibility. Usually that something more can be gathered from the
pleadings and the facts alleged or admitted therein. There may be a specific allegation
in the pleadings showing the relevance of extraneous facts, or there may be
allegations from which it may be inferred that further facts affecting interpretation
may reasonably possibly exist. A measure of conjecture is undoubtedly both
permissible and proper, but the shield should not be allowed to protect the respondent
where it is composed entirely of conjectural and speculative hypotheses, lacking any
real foundation in the pleadings or in the obvious facts.‖‘

[39] It must be borne in mind that, as a result of the procedure we now
lay down, the party seeking certification will have set out in a draft
pleading and in affidavits the basis for the proposed action. In so doing
the court will probably have more material available to it in regard to the
cause of action than would be the case with a normal exception. That will

enable the court to make a proper assessment of the legal merits of the
claim and, sensitively applied in this new area of law and procedure there
should not be a difficulty. Unless it is plain that the claim is not legally
tenable, certification should not be refused. The court considering
certification must always bear in mind that once certification is granted
the representative will have to deliver a summons and particulars of claim
and that it will be open to the defendant to take an exception to those
particulars of claim. The grant of certification does not in any way
foreclose that or answer the question of the claim‘s legal merit in the
affirmative.

[40] Establishing a prima facie case on the evidence is not a difficult
hurdle to cross. In the context of an attachment to found jurisdiction
Scott JA set out the test as follows:
‗[12] The requirement of a prima facie case in relation to attachments to found or
confirm jurisdiction has over the years been said to be satisfied if an applicant shows
that there is evidence which, if accepted, will establish a cause of action and that the
mere fact that such evidence is contradicted will not disentitle the applicant to relief
— not even if the probabilities are against him; it is only where it is quite clear that
the applicant has no action, or cannot succeed, that an attachment should be refused. .
Nestadt JA, in the Weissglass case … warned that a court must be careful not to enter
into the merits of the case or at this stage to attempt to adjudicate on credibility,
probabilities or the prospects of success.
[13] …
[14] What is clear is that the evidence on which an applicant relies, save in
exceptional cases, must consist of allegations of fact as opposed to mere assertions. It
is only when the assertion amounts to an inference which may reasonably be drawn
from the facts alleged that it can have any relevance. In other words, although some
latitude may be allowed, the ordinary principles involved in reasoning by inference
cannot simply be ignored. The inquiry in civil cases is, of course, whether the
inference sought to be drawn from the facts proved is one which by balancing

probabilities is the one which seems to be the more natural or acceptable from several
conceivable ones … While there need not be rigid compliance with this standard, the
inference sought to be drawn, as I have said, must at least be one which may
reasonably be drawn from the facts alleged. If the position were otherwise the
requirement of a prima facie case would be rendered all but nugatory …‘

[41] A similar standard is applied in other instances such as the test for
the existence of a defence in summary judgment proceedings. There is no
reason why it cannot be applied to determine whether the applicant for
certification has shown the existence of a cause of action. I would add
only this to Scott JA‘s exposition. The test does not preclude the court
from looking at the evidence on behalf of the person resisting
certification, where that evidence is undisputed or indisputable or where
it demonstrates that the factual allegations on behalf of the applicant are
false or incapable of being established.39 That is not an invitation to
weigh the probabilities at the certification stage. It is merely a recognition
that the court should not shut its eyes to unchallenged evidence in
deciding a certification application. Properly applied the test for a prima
facie case should not pose any insuperable difficulties for an applicant for
certification.

[42] The appellants accepted in their heads of argument that to obtain
certification a prima facie case had to be established. They submitted that
the existence of such a case did not involve any enquiry into the merits.
In doing so they relied on two cases, Eisen v Carlisle & Jacquelin et al,
from the United States of America,40 and Hollick v Toronto (City), from

39 Dabelstein & others v Lane and Fey NNO 2001 (1) SA 1222 (SCA) at 1227H–1228A; MV Pasquale
Della Gatta; MV Filippo Lembo; Imperial Marine Co v Deiulemar Compagnia Di Navigazione Spa
2012 (1) SA 58 (SCA) paras 22 to 24.
40 Eisen v Carlisle & Jacquelin et al  417 US 156 (1974).

Canada.41 Neither case supports this contention. The passage from Eisen
on which reliance was placed was explained in Wal-Mart42 as not
excluding the necessity for evidence to show that the requirements of
Federal Rule 23(a) were satisfied and this would necessarily involve
evidence on the merits. In Hollick the question was posed to what extent
the class representative ‗should be allowed or required to introduce
evidence in support of a certification motion.‘43 The answer in the light of
the recommendations of the Ontario Law Reform Commission was that:
‗In my view, the Advisory Committee‘s report appropriately requires the class
representative to come forward with sufficient evidence to support certification, and
appropriately allows the opposing party an opportunity to respond with evidence of its
own.‘
Evidence is therefore required to identify the class, identify the common
issue or issues and show that a class action is appropriate. That
necessarily means that there must be evidence showing a prima facie
cause of action, because the existence of a cause of action underpins the
existence of a class and serves to identify the issues common to that class
that require determination.

[43] It is desirable to say something about the procedure to be adopted
in certification applications. The appeal was complicated by the absence
of a clear statement by Mr Solomon of the cause of action that the
appellants intended to advance. It was unclear whether the claim was
based on the breach of the Act‘s provisions or was a constitutional claim
seeking constitutional damages.44 In the appellants‘ heads of argument it
was said to be a delictual claim, with an alternative claim based upon a
breach of the constitutional right to sufficient food. This confusion would

41 Hollick v  Toronto (City) supra para 16.
42 Page 2552, fn 6.
43 Para 22.
44 Fose v Minister of Safety and Security 1997 (3) SA 786 (CC).

have been avoided if the application had been accompanied by a draft set
of particulars of claim in which the cause of action was pleaded, the class
defined and the relief set out. The affidavit or affidavits filed in support of
the application would then have set out the evidence available to the
appellants in support of that cause of action and the further evidence that
they anticipated would become available to them to sustain the pleaded
case and the means by which that evidence would be procured. That
procedure should be followed in future applications. That will enable
those opposing certification to respond meaningfully and the court to
decide the application with a clear understanding of the nature of the
case. That is not to say that the court must treat the draft pleading as if it
were the law of the Medes and Persians, insofar as the content of the
applicant‘s case is concerned. Manifestly it can be amended and the need
for amendment may emerge in the course of the certification application.
But it should at least serve to clarify the issues arising in the certification
application.

Common issues of fact or law
[44] This does not require that every claim advanced in the class action,
save possibly in relation to quantum, be identical. It requires that there be
issues of fact, or law, or both fact and law, that are common to all
members of the class and can appropriately be determined in one action.
Dealing with the issue of commonality in Wal-Mart Scalia J said45 that
the claims:
‗… must depend upon a common contention …That common contention, moreover,
must be of such a nature that it must be capable of classwide resolution – which

45 At p 2551. Similarly in Hollick v Toronto (City), supra, McLachlin CJC said ‗an issue will be
common ―only where its resolution is necessary to the resolution of each class member‘s claim‖ …
Further, an issue will not be ―common‖ in the requisite sense unless the issue is a ―substantial …
ingredient‖ of each of the class members‘ claims.‘ (para 18)

means that determination of its truth or falsity will resolve an issue that is central to
the validity of each one of the claims in one stroke.‘
In my view that is correct. The simplest example of such a common issue
would be the issue of negligence in a case involving the derailment of a
train. That could give rise to different claims, such as damages for
personal injuries by passengers, dependents‘ claims for loss of support in
respect of those killed, claims for loss of or damage to goods being
carried on the train and damage to other property arising as a result of the
derailment, but there would be sufficient commonality on the issue of
negligence to sustain a class action.

[45] That highlights the point that the class action does not have to
dispose of every aspect of the claim in order to obtain certification. It
might in an appropriate case be restricted to the primary issue of liability,
leaving quantum to be dealt with by individual claimants. Certain
common issues could be certified for the entire class, and other subsidiary
issues certified in respect of defined sub-classes. But the question in
respect of any class or sub-class is always whether there are common
issues that can be determined that will dispose of all or a significant part
of the claims by the members of the class or sub-class.

The representative
[46]     In some jurisdictions, such as the United States, it is an express
requirement that the representative plaintiff has a claim that is typical of
the claims of the class. In Canada and Australia, whilst there is no express
requirement of typicality, Professor Mulheron suggests that the
jurisprudence of those countries in regard to commonality, makes that a
requirement.46 That question does not arise in South Africa, because

46 Mulheron, supra, 309–313.

s 38(c) of the Constitution expressly contemplates a class action being
pursued by ‗anyone acting as a member of, or in the interest of, a class‘.
Accordingly, while the appellants include five individuals who may be
typical of the class they are seeking to represent, the other four appellants
may permissibly act in the interest of the class. As already indicated there
is no reason to differentiate in that regard between class actions based on
infringement of rights protected under the Bill of Rights and other class
actions.

[47] The court must be satisfied of two broad matters in regard to the
representatives of the class. The first is that they have no interests in
conflict with those whom they wish to represent. A conflict of interest
arises if the purpose of the litigation is to enrich the representatives, or to
serve interests other than those of the class. The second issue is whether
the representative has the capacity to conduct the litigation properly on
behalf of the class. That is important because unsuccessful litigation will
have the effect of destroying the claims.

[48] The capacity to conduct the litigation has a number of aspects that
must be dealt with in the application for certification. First, has the
representative the time, the inclination and the means to procure the
evidence necessary to conduct the litigation? Second, has the
representative the financial means to conduct the litigation and, if not,
how is it going to be financed? This will involve making some
assessment of the likely costs. Third, does the representative have access
to lawyers who have the capacity to run the litigation properly? This will
require some consideration of the likely magnitude of the case and the
resources involved in dealing with it. Fourth, on what basis are those
lawyers going to be funded? Fifth, if the litigation is to be funded on a

contingency fee basis, details of the funding arrangements must be
disclosed to ensure that they do not give rise to a conflict between the
lawyers and the members of the class. The court must also be satisfied
that the litigation is not being pursued at the instance of the lawyers for
their own gain rather than in the genuine interests of class members, as
the risk of conflicts of interest is inherent in that situation. It is for this
reason that in other jurisdictions the court‘s approval of any settlement is
required. Whilst that issue does not arise in these proceedings, so that it is
unnecessary for us to be prescriptive, some similar requirement will need
to be imposed when that situation does arise.

Application of principles in this case
[49] Whilst much of the argument focussed around the Western Cape
and what the appellants now describe as Class 1, it is convenient to deal
in the first instance with Class 2 and the application to certify a class
action in respect of the issues flowing from the national complaint to the
Commission.

Class 2
[50] This application did not originally seek certification in respect of
the national complaint and a class consisting of purchasers of bread in the
four provinces, Gauteng, Free State, North West and Mpumalanga, where
the events giving rise to that complaint occurred. Accordingly we lack
any evidence in regard to that class. All we have is the Tribunal‘s
determination in the Pioneer case of the conduct that gave rise to the
Tribunal‘s findings that Pioneer, in conjunction with the other bread
producers, had engaged, directly or indirectly, in price fixing and the
division of markets in those four provinces. However, there is no
evidence as to the effect of that conduct in the market place and its impact

on the price of bread for consumers. In addition the orders by the
Tribunal in respect of Tiger and Foodcorp do not appear to overlap
entirely with the findings in the determination in respect of Pioneer.

[51] This is relevant because the claim is based upon anti-competitive
conduct in terms of the Act. That claim must be pursued on the basis of a
determination by the Tribunal. Given the passage of time and the
provisions of s 67(1) of the Act it seems improbable that any further
determination will be made about anti-competitive conduct in the areas
covered by the national complaint. The certification of a class action must
then be addressed on the footing that the case to be advanced will be in
accordance with the determination by the Tribunal in the Pioneer case.

[52] The Commission did not allege before the Tribunal that a cartel
existed at all times across all regions of the country or that the co-
ordination or agreement or understanding between the bread producers
related to the same subject matter in all regions.47  The factual findings of
the Tribunal were varied. In regard to the division of markets in 1999
Pioneer sold its bakery in Welkom to Tiger and Tiger agreed ‗to keep out
of the wider Free State area‘ in favour of Pioneer. In the North West, also
in 1999, the agreement was confined to the informal trade, where it was
agreed that the four bread producers would not compete in supplying that
trade in the areas around Krugersdorp, Orkney, Stilfontein and
Potchefstroom. In Mpumalanga in 2001, Tiger and Pioneer jointly sold a
bakery in Bushbuckridge, in which they owned equal shares, to

47 Tribunal determination in Pioneer para 81.

Foodcorp. In return Foodcorp sold its bakery in Groblersdal to Pioneer
and its share in the bakery in Ermelo to Tiger.48

[53] It is impossible on this evidence to say that this division of markets
affected all purchasers of the respondents‘ bread in these four provinces,
or even that it detrimentally affected all purchasers of their bread in the
particular areas. Nor can it be said that its impact on consumers would
have been similar. That will have depended on what occurred as the bread
passed down the value chain from producer to distributor or retailer and
thence to the consumer. Any impact on the national chains of
supermarkets would have been different from any impact on smaller retail
outlets and the informal sector. There is no evidence that it actually
resulted in higher prices in those areas or caused prejudice to consumers.
It may, for all we know have resulted in greater production efficiencies
and lower prices, particularly if the bakery sales occurred because the
sellers were not operating them profitably. Even if it had an adverse
effect on consumers, the nature, geographic scope and duration of that
effect is not known and would have differed from area to area.

[54] In regard to price fixing, whether direct or indirect, there was no
evidence of this in either the Free State or Mpumalanga. The Tribunal
heard evidence about meetings in North West in 2003 or 2004, and
another meeting in 2005, where information was exchanged about
impending price increases and arrangements made to co-ordinate
increases, not to undercut prices and not to poach customers when this
occurred. These arrangements did not involve Tiger, but did include
Foodcorp. There is no evidence that it had any effect elsewhere in the

48 Curiously the Tribunal found anti-competitive intent in the fact that in two instances the seller paid
the purchaser to take over the bakery. One would have thought that more indicative of the bakeries
being unprofitable to the sellers.

other three provinces. Its impact in the North West is not dealt with and
we do not know the nature, geographic extent or duration of any adverse
effect.

[55] In relation to Gauteng the Tribunal heard the evidence of one
witness who testified to regular communications about price increases
during 2003 and 2004 and the efforts made by the bread producers to
ensure that this did not set off a round of discounting directed at
increasing market share – probably the most significant element in
determining profitability. This was done by exchanging information
about price increases and, if one producer broke ranks by discounting in
response to an increase, threats to retaliate. The same witness also
testified to an agreement between Pioneer and Premier not to compete on
price when a new distribution centre was opened in Vanderbijlpark and to
an agreement on the co-ordinated implementation of price increases in
Gauteng generally in December 2006. Once again there is no evidence of
the nature, geographic extent or duration of any adverse effect. This is
particularly necessary in relation to price increases because, as the
Tribunal‘s determination records, a major driver of price increases is the
cost of the inputs into production, in particular wheat and flour, but also
electricity, labour costs, transport costs and the like. Co-ordination of
price increases would have had little impact if an increase by the price
leader (the dominant producer in a particular region) would, in any event,
have resulted in the other producers following suit.

[56]  It is plain from this summary that the class for which certification
is sought in Class 2 is over-broad; that the potential claims lack any
central common feature; and that any losses that this anti-competitive
conduct may have occasioned (none having been alleged or shown by

evidence), would have varied from place to place, time to time and person
to person. The class includes a considerable number of bread consumers
who cannot possibly have been affected by the anti-competitive conduct
of the bread producers, or would have been affected by some, but not all,
of such conduct. I have considered whether there are common issues that
would warrant certification in the wide class sought, together with the
creation of sub-classes, to cover particular situations. However, the
diversity of the Tribunal‘s findings in regard to the conduct falling under
the national complaint precludes that. It cannot readily be segmented
without information identifying the people affected by the division of
markets in the Free State, or the agreement not to compete on price in
Vanderbijlpark, or the coordinated increase in price in Gauteng in
December 2006.

[57] A class can only be identified with reference to the conduct of a
specific potential defendant or defendants. However, Premier was not
involved in the anti-competitive conduct in the Free State and Tiger was
not involved in the agreement in respect of Vanderbijlpark or those in the
North West. Premier was not party to the market division in
Mpumalanga. This diversity precludes the identification of a common
issue the disposal of which would have a decisive effect on the claims of
all members of the class.

[58] The findings by the Tribunal in the Pioneer case also preclude the
possibility of there being a common issue or issues that can apply to a
defined class of persons for the purpose of a class action. They involve
six different types of conduct occurring respectively in 1999, 2003 and
2004, July 2006 and December 2006. The 1999 conduct did not extend to
or impact upon Gauteng. The 2003 and 2004 agreements were confined

to parts of the North West. The anti-competitive conduct in 2006 related
to Gauteng alone. Although the findings and the papers before us
repeatedly use the sweeping term ‗cartel‘ to describe this conduct, it is
misleading to the extent that it suggests widespread conduct beyond that
which the Tribunal held had occurred. There was no finding of the
existence of a general cartel operating in the bread producing industry in
Gauteng, Free State, North West and Mpumalanga from 1 September
1999 to 8 May 2008, which is the area and the period for which
certification was sought. Indeed there could not have been such a finding
because that was not an allegation made by the Commission.

[59] Lastly it is necessary to mention that the absence of any evidence
concerning the impact of this anti-competitive conduct on consumers also
precludes certification. Without such evidence the requirement of
commonality among the members of the class is not satisfied. The claim
is said to be one for damages. The assessment of whether damages have
been suffered arising from anti-competitive conduct is a complex issue.
The following method is taken from an English case involving a price
fixing cartel49 and adapted to this case:

Determine or estimate the actual prices charged by the cartel
during the relevant period.

Estimate the price (known as the ‗but for‘ price) that would have
been charged had there been no cartel.

Subtract the ‗but for‘ price from the actual price.

Determine the quantity of bread purchased by each claimant or by
the class of claimants.

49 Devenish Nutrition Ltd & others v Sanofi-Aventis SA & others [2007] EWHC 2394 (Ch) para 19

Estimate the proportion of the ‗over-charge‘ absorbed by
intervening distributors and the retailers as the bread is passed down the
chain of purchases to the end consumer.

[60] Applying this methodology – which was not challenged - to this
case, involves entirely separate exercises being undertaken in a number of
small regional areas in the four provinces, in respect of widely divergent
conduct taking place at differing times and affecting consumers
differently depending on the actions of the retailers and resellers. In
addition the exercise is to take place in relation to three different bread
producers who set list prices separately in relation to the different types of
bread that they produced50 and negotiated discounts separately and in
different ways for different groups. The result was that they charged
varying prices to the retailers and resellers to whom they sold bread. In
turn the retailers and resellers fixed their own prices independently. The
inevitable result is that there is no commonality within the suggested
class in regard to harm suffered or the nature of any damage that may
have been caused to individual consumers. That would not matter if there
were some overriding common issue that applied to all bread consumers
in these four provinces during the relevant period, but none is identified.
There is simply the sweeping statement (admittedly made in relation to
the Western Cape) that ‗every consumer that bought their products during
the period in question suffered damages‘. That cannot be correct in the
light of the Tribunal‘s analysis of the offending conduct.

[61] The inevitable conclusion is that, on the assumption that there is a
delictual action available to consumers who suffer damage in the form of

50 The Tribunal determination reflects that Pioneer produced 32 different types of bread, not all of
which are available throughout the country.

higher prices in consequence of anti-competitive conduct, the proposed
Class 2 is too broad because it includes people who were not injured by
the conduct of the producers. Furthermore there is no common issue of
fact or law shared by all the members of the class. Consumers who
suffered damages as a result of any of the anti-competitive conduct
constituting the national complaint did so for varying reasons arising
from different conduct in different areas at different times. The cause,
nature and extent of those damages are not common to the proposed
class. The claim for certification in respect of Class 2 must therefore fail.

Class 1
[62]   This is the class to which the application related from the outset.
The proposed action arises from the co-ordinated implementation of price
increases in the Western Cape by the respondents from 18 December
2006. Although reference is made in the founding affidavit to the other
practices concerning the distributors it is not clear how they could have
adversely affected the consumers. If the distributors‘ discounts were
reduced, and they absorbed the reduction by accepting a decline in their
profit margins, that would not have affected consumers at all. If they
increased their prices in order to maintain their profit margins, not only
would their sales have fallen, because consumers refused to buy bread at
those prices or obtained it elsewhere, but any loss to consumers would
have flowed from the independent actions of the distributors. Similarly
the agreement not to poach distributors was supplementary to the
discount agreement. It is, however, unnecessary for present purposes to
decide this, as it suffices for the purpose of certification for the appellants
to show that consumers would have a cause of action arising from the co-
ordinated increase in list prices.

[63] The appellants have now nailed their colours to the mast of a
delictual action flowing from a breach of statutory duty. They persisted
with their constitutional claim based on a breach of a negative obligation
not to interfere with the right to sufficient food in s 27(1)(b) of the
Constitution, but only in the alternative. Whilst there was some criticism
in argument of the manner in which their claim had fluctuated in the
course of these proceedings I do not think that should affect matters. On
any basis the proposed claim is a novel one and identifying the proper
basis for it is a matter of some complexity. The appellants should not be
penalised in certification proceedings for variations in the legal
foundation of the claim they seek to advance. On a factual level it has
always been the same claim, namely that consumers of bread in the
Western Cape were obliged to pay more for bread than they would
otherwise have done if the bread producers had not engaged in the
prohibited anti-competitive conduct the Tribunal found they had
perpetrated.

[64] The claim is advanced on the following basis. The appellants say
that this type of anti-competitive conduct is prohibited in the interests of
competition and the interests of consumers. These prohibitions serve to
fulfil the aim of the Act as set out in the preamble and in particular the
aim of providing markets in which consumers can freely, that is, without
coercion by anti-competitive conduct, purchase the quality and variety of
goods they desire. They also serve to provide consumers with competitive
prices as provided in s 2(b) of the Act. Founding upon cases that say that
a breach of a statutory duty can give rise to a legal duty not to cause
financial loss,51 the appellants contend that such a legal duty rested on the

51 Steenkamp NO v Provincial Tender Board, Eastern Cape 2006 (3) SA 151 (SCA) paras 19-21 and
Olitzki Property Holdings v State Tender Board & another 2001 (3) SA 1247 (SCA) paras 12-14.

bread producers and that they breached it deliberately by their actions in
agreeing on the co-ordinated increase of list prices. In support of such a
duty they point to s 65(6) of the Act that contemplates that a person who
has suffered loss or damage as a result of a prohibited practice may have
an action to recover that loss or damage. They contend that the prohibited
practice in this case resulted in consumers in the Western Cape paying
more for the respondents‘ bread than they would otherwise have done.

[65] The respondents challenge this case on a variety of levels. First,
they submit that as a matter of interpretation the Competition Act was not
enacted for the benefit generally of the consumers on whose behalf it is
sought to proceed and therefore does not create the alleged legal duty.
Second, they contend that there is no evidence of loss suffered by the
consumers arising out of the anti-competitive conduct. Third, they submit
that there is no evidence linking the anti-competitive conduct with any
increase in prices or damage to consumers, and hence the necessary
causal element is missing. In other words, on the first leg they raise a
legal argument and on the latter two legs they say there is no prima facie
case in relation to these elements of a delictual action.

[66] Premier challenges the delictual claim on two other bases. Its
principal argument is that such a claim is bad in law because s 65 of the
Act provides for a ‗follow on‘ claim founded on a finding of prohibited
anti-competitive conduct by the Tribunal, and that on a proper
construction of the Act this remedy is exclusive and precludes a common
law delictual action. In the alternative it contends that the proposed claim
is, by virtue of the relief being sought, not a claim for damages and
accordingly not a valid delictual claim.

[67] The legal arguments about the existence of a legal duty and the
existence of an exclusive statutory claim in terms of s 65 of the Act are
linked. If Premier is correct that the Act provides an exclusive follow on
claim then the legal duty on which the appellants rely does not exist.
However, if it is incorrect, that strengthens the appellants‘ hand
considerably, because, s 65(6) recognises the possibility of claims arising
from prohibited anti-competitive conduct, so that the absence of a
specific statutory claim would suggest that there must be a delictual claim
available to at least some persons injured by such conduct.

[68] I am not convinced that s 65 of the Act provides for the type of
exclusive follow on remedy for which Premier contends. The relevant
portions of the section read as follows:
‗(2)  If, in any action in a civil court, a party raises an issue concerning conduct that is
prohibited in terms of this Act, that court must not consider that issue on its merits,
and—

(a)
if the issue raised is one in respect of which the Competition Tribunal
or Competition Appeal Court has made an order, the court must apply the
determination of the Tribunal or the Competition Appeal Court to the issue; or

(b)
otherwise, the court must refer that issue to the Tribunal to be
considered on its merits, if the court is satisfied that—

(i)
the issue has not been raised in a frivolous or vexatious manner; and

(ii)
the resolution of that issue is required to determine the final outcome
of the action.
(6)  A person who has suffered loss or damage as a result of a prohibited practice—

(a)
may not commence an action in a civil court for the assessment of the
amount or awarding of damages if that person has been awarded damages in a consent
order confirmed in terms of section 49D(1); or

(b)
if entitled to commence an action referred to in paragraph (a), when
instituting proceedings, must file with the Registrar or Clerk of the Court a notice

from the Chairperson of the Competition Tribunal, or the Judge President of the
Competition Appeal Court, in the prescribed form—

(i)
certifying that the conduct constituting the basis for the action has been
found to be a prohibited practice in terms of this Act;

(ii)
stating the date of the Tribunal or Competition Appeal Court finding;
and

(iii)
setting out the section of this Act in terms of which the Tribunal or the
Competition Appeal Court made its finding.
(7)  A certificate referred to in subsection (6)(b) is conclusive proof of its contents,
and is binding on a civil court.
(8)  An appeal or application for review against an order made by the Competition
Tribunal in terms of section 58 suspends any right to commence an action in a civil
court with respect to the same matter.
(9)  A person‘s right to bring a claim for damages arising out of a prohibited practice
comes into existence—

(a)
on the date that the Competition Tribunal made a determination in
respect of a matter that affects that person; or

(b)
in the case of an appeal, on the date that the appeal process in respect
of that matter is concluded.
(10)  For the purposes of section 2A(2)(a) of the Prescribed Rate of Interest Act,
1975 (Act No. 55 of 1975), interest on a debt in relation to a claim for damages in
terms of this Act will commence on the date of issue of the certificate referred to in
subsection (6).‘

[69] Whilst the section contemplates the possibility of a claim for
damages at the instance of a person who suffers loss or damage in
consequence of a prohibited practice, it does not state that such a person
will have an action, nor does it purport to determine the requirements for
such an action. Its provisions are rather directed at the relationship
between the Tribunal‘s determination and the court before which such an
action is brought; the timing of such an action; the running of prescription
in relation to the claim underlying such action and interest on the claim.

As regards the first of these, it says in s 65(2) that the issue of whether
prohibited conduct has occurred must be determined by the Tribunal, or
the Competition Appeal Court on appeal from it, to the exclusion of the
court before which the action is commenced. Proof of such prohibited
conduct is provided by the certificate of the Chairperson of the Tribunal
or the Judge President of the Competition Appeal Court (ss 65(6) and
(7)). Until the proceedings before the competition authorities are
complete an action may not be pursued (s 65(8)). If the Tribunal has
already awarded damages in a consent order under s 49D(1) a further
claim for damages is excluded. The commencement date for the running
of prescription is dealt with in s 65(9) and the date upon which interest on
a claim will start to run is dealt with in s 65(10). All of these are
essentially procedural matters or, in the case of prescription and interest,
matters dealt with in other statutes that require special treatment in this
particular context.52

[70]  Premier draws attention to the bifurcation of jurisdiction created
by the Act, where the specialist tribunals have exclusive jurisdiction over
the question whether prohibited practices have been committed and the
civil courts have no say. However, to my mind that is a two-edged sword.
The writ of the specialist competition tribunals runs only to the extent of
determining whether a prohibited practice has occurred and no further.
Beyond that the civil courts provide the forum to which parties who
suffer damages arising from the prohibited practice must turn in order to
recover those damages. They will clearly apply conventional principles in
regard to the assessment of damages and causation of loss. However, the
more difficult question is to identify those who are entitled to pursue

52 There is nothing unusual in this. Section 8(3) of the Extension of Security of Tenure Act 62 of 1997
contains a similar provision.

claims to recover such loss. Premier‘s argument assumes that anyone who
has suffered loss or damage and can demonstrate a causal link between
that loss and damage is entitled to be compensated for that loss or
damage. That is consistent with its contention that the Act provides for
strict liability.

[71] Under the principles of the law of delict it is insufficient for
someone to say that they have suffered loss as a result of the conduct of
another, even where such conduct was deliberate or negligent. They must
first establish that the person from whom they seek to recover that loss
owes them a legal duty to prevent such loss so that their failure to do so is
wrongful in accordance with the legal convictions of the community.53 In
the context of pure economic loss, into which category this claim falls,
that is a particularly complex enquiry.54 For example the risk of
indeterminate loss would have to be weighed against the inability of the
consumers to protect themselves against loss flowing from the prohibited
practice. It would be a startling departure from principles that have been
recognised as compatible with our new constitutional order,55 for liability
to compensate for loss or damage flowing from a prohibited practice to
exist in the absence of any duty to prevent such loss. It would eliminate
one of the basic principles by which our law prevents liability for acts
causing damage from being extended beyond acceptable limits.

[72] On the other hand there are textual factors that lend support to
Premier‘s argument. Thus s 65(6)(a) speaks of a person who has suffered

53 Minister of Safety and Security v Van Duivenboden, supra, para 21;Telematrix (Pty) Ltd t/a Matrix
Vehicle Tracking v Advertising Standards Authority SA 2006 (1) SA 461 (SCA) paras 12-16; Trustees,
Two Oceans Aquarium Trust v Kantey & Templer (Pty) Ltd supra, paras 10-12.
54 Fourway Haulage SA (Pty) Ltd v South African National Roads Agency Ltd 2009 (2) SA 150 (SCA).
55 Rail Commuters Action Group & others v Transnet Ltd t/a Metrorail & others 2005 (2) SA 359 (CC)
para 15; Steenkamp NO v Provincial Tender Board, Eastern Cape 2007 (3) SA 121 (CC) paras 37-47
and 69-70.

loss or damage as a result of a prohibited practice commencing an action
in a civil court ‗for the assessment of the amount or awarding of
damages‘. The first part of that is consistent with the action concerning
only the quantum of damages and nothing more. Section 49D(4) refers to
a complainant ‗applying for an award of civil damages‘. That is also
consistent with the making of the award being a mechanical process in
which only the quantum of the claim must be assessed.

[73] The record as it stands is not apt for determining questions of this
importance and difficulty. The claim by the appellants has been advanced
on too simple a basis to determine whether the foundation for the legal
duty necessary to support a delictual claim exists. That is not surprising.
After all, the claim was only advanced on that basis when their heads of
argument were filed in this court. However, the contention by Premier is
not clearly correct and the corollary to its rejection appears to me to be
that a delictual action would lie at the instance of at least some claimants.
In my view it is undesirable to determine these issues in an appeal where
the arguments being advanced, both as to legal duty and as to the effect of
s 65, are raised for the first time on papers that are admittedly incomplete.

[74] The arguments that the factual allegations made by the appellants
were insufficient to make a prima facie case in respect of a delictual
claim have force in the light of the limited evidence proffered by the
appellants. However, the case is one of price fixing by agreeing on a date
for implementation of price increases by all three respondents. That
agreement would have served to stifle competition that might otherwise
have resulted from any one of the respondents increasing its prices
without such an agreement. As such it would have tended to increase the
prices that the bread manufacturers were able to charge to their customers

and, markets being what they are, it is probable that to some extent at
least those price increases would have been passed on to consumers.
After all part of the justification given by the bread producers for the
increases was that prices of wheat and flour and other major input costs
had risen and they needed to pass these on to consumers if their
businesses were to remain profitable. If artificially high increases in the
price of bread resulted from this prohibited practice by the respondents, it
is a logical inference that consumers would have paid more for bread than
would otherwise have been the case. In the absence of rebutting evidence
from the respondents, demonstrating the falsity of that line of reasoning,
the appellants‘ case on the facts cannot be rejected at this stage of
proceedings. It is plain that the claim as now advanced raises both legal
and factual issues that would be common to all affected consumers.

[75] In summary the claim that the appellants seek to advance has a
potentially plausible basis, but it is premature at the stage of this appeal
for this court to determine the questions raised by these arguments in
view of their novelty, complexity and the fact that they are raised for the
first time in this court. The appellants should not be non-suited on these
grounds, which would be the effect of dismissing their appeal, but equally
the respondents‘ arguments cannot be rejected at this stage. That indicates
that it is desirable to refer the present application back to the high court,
with appropriate directions for the delivery of further affidavits, for it to
be dealt with on a complete set of papers and in the light of the principles
laid down in this judgment.

[76] There are two possible reasons why this court should not make that
order. The first concerns the definition of the potential class and the
second the proposed remedy. If we were to conclude that the class is

incapable of satisfactory definition or that no proper relief can be claimed
in this action then it would be wrong to remit the matter and cause further
expense to be incurred and valuable court time consumed on a fruitless
exercise. However, in considering that question one must be cautious not
to stifle what may be litigation properly, if inadequately, commenced
when we do not have all the facts and do not have the advantage of full
affidavits on both sides of the question and argument that would clarify
what is at present obscure.

[77] In regard to the proposed class it is clearly too broadly stated. The
proposition that it includes virtually all consumers of bread in the
Western Cape cannot be correct, when the market share of the
respondents in South Africa as a whole was said by the Tribunal to be
some 50 to 60 per cent of the domestic bread market. For all we know the
respondents‘ operations may have been largely confined to the Cape
peninsula and the winelands, leaving the vast hinterland of the province
to smaller operations. That would suggest that the class should be
confined to people resident in that more limited area. The sales of the
respondents in the Western Cape will have included sales to institutions,
such as schools, hospitals and prisons, and commercial establishments,
such as hotels, bed and breakfast establishments, restaurants and other
establishments where food is served. These should be excluded. It may be
that on further consideration it is appropriate to exclude consumers whose
bread purchases were made through the national chains of supermarkets
and garage forecourts, where prices were negotiated nationally and the
impact of the price fixing may have been significantly different. It may
also be appropriate to restrict the case to the basic types of bread – the
standard loaf of white and brown bread, sliced and unsliced – and not
include all the varieties that were available from the bread producers at

the time, which are probably not the staple fare of the poor consumer.
The fact that none of this was done illustrates that the proposed class is
over-broad and cannot be certified as such.

[78] Having said that, however, can it be said that the proposed class is
incapable of adequate definition? The evident aim of the appellants is to
represent the interests of poor consumers in the Western Cape, or the
relevant part of it, those who would have been hardest hit by any
artificially sustained increase in the price of bread. It should be possible
to define that group with greater specificity perhaps by using the income
bands that economists, and many in the commercial world, use to
differentiate differing economic groups. No doubt statistical information
is available from Statistics SA and other sources. Information about the
sources of bread for these consumers may enable the class to be defined
with greater precision. It is probably inevitable that any class will include
some people who do not consume bread or did not consume the
respondents‘ bread, but that should not preclude certification if the class
is otherwise adequately defined and statistical controls are in place to
accommodate that possibility.

[79] If one takes all these factors into consideration I do not think that it
is necessarily impossible for the appellants to define the class they wish
to represent with the degree of clarity that is required. I may be wrong in
the light of information produced by the respondents when they have an
opportunity to deliver full affidavits, which may show that the bread
market is more fragmented than it may appear at first sight. However, that
is not a reason at this stage to say that the appellants‘ task in seeking
certification is doomed to failure.

[80] That leaves the question of remedy. The remedy that the appellants
propose at this stage suffers from many defects. Whilst the appellants say
that they wish to represent the consumers of bread and pursue the claims
for damages of that class, the remedy they seek is that money be paid to
unnamed and as yet unconstituted trusts or similar bodies that they say
will use the funds generally to benefit bread consumers. How this is to be
done is not explained. In the heads of argument it is suggested that the
money would be used to fund community and school feeding schemes.
Commendable though that may be it is not a means of compensating
consumers of bread, who suffered loss or damage in consequence of the
prohibited practices of the respondents, for their loss or the damage they
suffered. It is a means of providing food – not necessarily bread – to
those who lack it. Many of those will be people who suffered no loss or
damage at all in consequence of the prohibited practices. Some, such as
children, who are frequently the principal beneficiaries of such schemes,
would not even have been alive at the time. Others may not have had the
means to buy bread at the time or may not have been in the Western
Cape. This is clearly recognised in the appellants‘ heads of argument
where they say that the purpose of the proceedings is not to identify the
members of the class and distribute the proceeds to them. In fact the
appellants seek to turn this to their advantage by saying that in view of
the intended form of relief ‗an over-inclusive class definition would be
harmless‘.

[81] The litigant who sues in delict sues to recover the loss suffered in
consequence of the wrongful act of the defendant.56 The appellants
propose to prove the claim on this basis, but then not pay the damages to

56 Trotman & another v Edwick 1951 (1) SA 443 (A) at 449B-C; Ranger v Wykerd & another 1977 (2)
SA 976 (A) at 986D-E.

the members of the class. The justification for this approach is said to be
that in circumstances where it is impractical to distribute to the members
of the class directly the damages should be distributed cy-près, that is, in
a manner as near as possible to a direct distribution. That would be a
novel development in our law, but we were referred to foreign
jurisprudence in relation to class actions that supports some alternative
form of distribution of damages where distribution to the members of the
class is impractical and urged to permit such a mode of distribution in the
present case.

[82]  According to Professor Mulheron,57 Australia does not permit a
distribution other than to the members of the class, although this has
occasionally caused difficulties in distributing the balance of a settlement
fund when all the beneficiaries that have come forward have been paid
and there is a residual amount in the fund. In Canada provision is made
by statute for such distributions in certain cases. Only in the United States
does it appear that courts have permitted such distributions. Even there
this has usually been in relation to settlement agreements, where the court
is asked to confirm a settlement the terms of which have been devised by
the parties to the litigation, or in respect of residual amounts remaining
after distribution to all members of the class who have come forward with
claims. As a remedy in disputed litigation, distributions cy-près appear to
have gained little purchase and they have by and large not been
welcomed by appellate courts.

57 Mulheron ante 426-434 and The Modern Cy-près Doctrine Chapter 7, pp 215-252.

[83] In South Africa the Law Commission‘s working paper on class
actions58 proposed the application of an aggregate award of damages or a
settlement amount in a way that could reasonably be expected ‗to
compensate or benefit class members, where actual division and
distribution of the award among the class members is impossible or
impracticable‘. It gave as examples a price reduction for a certain time,
where there had been an illegal overcharge for goods or services, and the
use of compensation to clean up pollution or provide health services to
those who were injured by the pollution. In each case whilst the money
would not go directly to the beneficiaries it would be used for their
benefit as a remedy for the harm they had suffered. However, when the
Law Commission came to deliver its final report even this relatively
modest proposal did not find favour. It limited its recommendations to the
following:
‗When an aggregate assessment is made the court should give directions regarding the
distribution of the award to class members and may, where appropriate, require the
defendant to distribute the damages directly to the class members. The Act should
contain an express provision with regard to the aggregate assessment of monetary
awards and the disposal of any undistributed residue of an aggregate award.‘59
The draft bill that accompanied the report did not in fact make provision
for the distribution of an undistributed residue of an aggregate award, but
presumably that was a drafting oversight.

[84] The remedy that is being sought at this stage does not aim to
compensate the members of the proposed class in any way. It is
unconnected to that goal. Its aim is purely punitive, a matter already dealt
with by the Tribunal in the substantial administrative penalties that it

58 South African Law Commission The Recognition of a Class Action in South African Law (Working
Paper 57, 1995) para 5.38.
59 Recommendation 18, para 5.13.5, p 66.

levied against the respondents.60 It has the effect of depriving the
members of the class of their claims in order to enable the appellants (and
this is likely in practice to mean the first four appellants, not the
individual appellants) themselves, through a trust they control or set up,
to oversee the distribution of the damages in a manner they think
appropriate. That is a remedy that in some other jurisdictions has been
introduced by way of legislation after a careful policy review and in other
jurisdictions is simply impermissible. It is not a remedy foreshadowed by
the Law Commission in its report. It has been adopted by some lower
courts in the United States in different circumstances and has received at
best a lukewarm and at worst a hostile reception from higher courts. As a
remedy it is controversial as Professor Mulheron demonstrates in her
comprehensive works in this area of the law.

[85] It is at this point that the warning I sounded earlier, about the court
not making policy decisions that are properly the preserve of the
legislature, comes to the fore. In my view the suggested remedy is not a
permissible one. It departs from the purpose of the class action to
compensate those who have suffered loss for that loss, by stripping them
of their claims, with the excuse that as they are small they are worthless,
and vests those claims in others to pursue in their own interests. Worthy
though those interests are that cannot justify the court in permitting this.
It would not involve a development of the common law, but rather a
substantial alteration to it. The new principle that would be created would
be that where a large number of people had relatively small claims
against a defendant, that it would not be worth their while to pursue
individually, those claims can be confiscated from them by judicial fiat
and vested in a person that will be able to use the proceeds of those

60 Para 3 ante.

claims in a socially useful manner. In my view that is a bridge we should
decline to cross.

[86] Does that mean that, where the claims are so small that there is no
practical way in which to pursue them and distribute the proceeds to the
individual claimants, no class action can be brought? In my view not. The
problem can be solved by a small extension of our existing principles of
the law governing damages along the lines suggested in the Law
Commision‘s working paper. The action proceeds on the basis that the
claim is one to recover the damages suffered by the members of the class.
Where those damages are all of the same nature, which is the case here
where the complaint is that consumers were allegedly unlawfully forced
to pay more for bread than they would otherwise have done, they can be
computed on an aggregate basis using well-established statistical
methods. There is nothing novel in this. Statistical methods are used in
many aspects of the computation of damages.

[87] Once the aggregate damages have been computed the next step is
for the appellants to identify the mode of distribution that will serve as a
surrogate for the distribution directly to individuals of the amount of their
loss. That may be by way of a targeted price reduction for a period, a
remedy that Professor Mulheron says has been found to be ‗particularly
effective for remedying overcharges on items which are repeatedly
purchased by the same individuals‘.61 Alternatively it may be by way of
distribution in a way that can be shown to be likely to benefit, directly or
indirectly, the members of the class. This calls for the type of judicial
creativity that Harms JA said is essential to provide an effective relief to

61 Mulheron, supra 427. See the potential pitfalls with this remedy in her The Modern Cy-près Doctrine
218-222.

those affected by a constitutional breach.62 As we are extending the
availability of a class action in order to give effect to the right of access to
courts it is incumbent on us to ensure that the right is rendered effective
by ensuring that appropriate remedies will flow from its exercise.63 In my
judgment that can be done in a class action for damages, where the
damages cannot be distributed practicably to the members of the class, by
way of alternative methods that will, directly or indirectly compensate the
members of the class for their loss. The methods outlined above are
examples of how that can be done, but do not constitute a closed list of
possibilities. In each case the proposed remedy must be identified at the
outset and must be appropriate to the facts of the particular case. What is
impermissible is the type of remedy proposed in the present case where
the members of the class are not compensated either directly or indirectly
for the loss they have suffered.

Conclusion in respect of Class1
[88] In my judgment on the record before us the appellants have shown
that there is a potentially viable claim for delictual damages vested in a
class of consumers. That does not mean that the claim is a good claim in
law or that on these papers there is sufficient evidence available to
demonstrate the existence of a prima facie case if it is sound in law.
Those matters are not yet ripe for determination for the reasons given in
para 75. All that can be said at this stage on these papers is that the claim
is not legally untenable. The class is defined in terms that are overbroad,
but there are grounds for believing that it is capable of more precise
definition. The case raises issues common to all members of the class. It

62 Modderfontein Squatters, Greater Benoni City Council v Modderklip Boerdery (Pty) Ltd (Agri SA
and Legal Resources Centre, Amici Curiae): President of the Republic of South Africa & others v
Modderklip Boerdery (Pty) Ltd (Agri SA and Legal Resources Centre, Amici Curiae) 2004 (6) SA 40
(SCA) para 42.
63 Fose v Minister of Safety and Security 1997 (3) SA 786 (CC) paras 19 and 69.

may, however, be open to attack both as a matter of law and on the
grounds that there is insufficient evidence to sustain it even at a prima
facie level. That can only be determined once a complete set of affidavits
has been filed. In addition the relief that the appellants have indicated
they wish to claim is not competent. However, there is no reason to think
that in the light of the principles laid down in this judgment an
appropriate prayer for relief cannot be formulated.

[89]  I have considerable sympathy for the learned acting judge who
was confronted with this application on a basis of extreme urgency and
had to wrestle with these novel and difficult issues within a short time
and against a background where there was no clarity as to the
requirements for a class action beyond those he distilled from the Law
Commission‘s report. In addition the arguments presented to us were not
presented to him and he did not have the advantage we have had of full
argument and reference to international authority by able counsel. His
principal concern appears to have lain with the appellants‘ view that the
claim against Tiger would prescribe and the consequent prayer to be
permitted to issue summons before certification, which he treated as a
prayer for final relief. That concern may have been misplaced. If, as we
now hold, an application for certification is the first necessary step in
proceedings to pursue a class action there is much to be said for the
proposition that, for purposes of prescription, service of the application
for certification would be service of process claiming payment of the debt
for the purposes of s 15(1) of the Prescription Act.64 Such an
interpretation would be supported by cases, where the institution of

64 Act 68 of 1969.

similar necessary preliminary proceedings, have been held to constitute
the bringing or commencement of suit for various purposes.65

[90] Even if the prayer seeking authority to issue summons before
finalising the issue of certification was bad, it did not necessitate the
dismissal of the application at that stage. Had the learned acting judge
had deployed before him the arguments that we have heard, and had the
benefit of knowing the parameters that we now lay down within which
such applications must be determined, I do not think that he would have
disposed of the application in that summary way. He would (and should)
have refused to certify the claim in respect of the national complaint now
described as the claim in respect of Class 2. However, viewing the claim
in respect of Class 1 in the light of the requirements of this judgment, he
should have required that the appellants supplement their application by
presenting a draft set of particulars of claim and afforded them the
opportunity of addressing the issues of a prima facie case, the definition
of the class, the appropriateness of the relief being claimed and the
suitability of the representative (in the sense dealt with in paras 47 and
48) in further affidavits. He should then have given an opportunity to the
respondents to file full answering affidavits and to the appellants to reply,
after which the application could have been dealt with in the light of a full
appreciation of the respective parties‘ cases.

[91] As that is the approach that in my judgment should have been
adopted, the appeal must succeed in relation to Class 1 and the matter
must be referred back to the high court to be dealt with in accordance

65 The Merak: T B & S Batchelor & Co Ltd (Owners of Cargo on the Merak) v Owners of SS Merak
[1965] 1 All ER 230 (CA) at 238 ‗'(t)o bring suit, it is said, means to pursue the appropriate remedy by
the appropriate procedure'. Dave Zick Timbers (Pty) Ltd v Progress Steamship Co Ltd 1974 (4) SA 381
(D) at 384A-D; IGI Insurance Co Ltd v Madasa 1995 (1) SA 144 (TkA) at 147B-C.

with the requirements of this judgment. In view of the fact that this is
novel litigation, in which at first instance the parties were in large
measure operating in the dark, and in view of the fact that such success as
the appellants have obtained as a result of this judgment may in the long
run bring them little advantage, the fairest order to make in regard to
costs is that all the parties should bear their own costs in this appeal.

[92] The following order is made:
1 The appeal against the refusal to certify a class action in respect of
the national complaint and the class 2 claimants is dismissed.
2 The appeal against the refusal to certify a class action in respect of
the Western Cape complaint and the class 1 claimants is upheld
and the application is remitted to the high court for determination
in accordance with the principles in this judgment.
3 The order of the high court is set aside and replaced with the
following order:
(a) If the applicants choose to pursue the application they are
granted leave to supplement their papers within two months of
this order by delivering supplementary affidavits, to which are
annexed a draft set of particulars of claim in respect of their
delictual claim against the respondents, embodying such further
evidence as they deem meet in amplification of that claim.
(b) The respondents are to deliver such further answering affidavits
as they deem meet within four weeks of the date for delivery of
the affidavits referred to in para (a) of this order.
(c) The applicants are afforded two weeks thereafter to deliver their
replying affidavits, if any.
(d) The costs of the application are reserved.
4 Each party is ordered to pay his, her or its own costs of this appeal.

M J D WALLIS
JUDGE OF APPEAL

Appearances

For appellant:
W H van der Linde SC (with him Steven
Budlender and Michelle le Roux), the heads of
argument having been prepared by Wim
Trengove SC with Mr Budlender and Ms Le
Roux.
Instructed by:
Abrahams Kiewitz Attorneys, Cape Town
Honey Attorneys, Bloemfontein
For first respondent:
S F Burger SC (with him J P V McNally SC
and J A Cassette)

Instructed by:

Cliffe Dekker Hofmeyr Inc, Sandton

Symington & De Kok, Bloemfontein.
For second respondent  John Dickerson SC (with him Michelle
O‘Sullivan and Ross Garland)

Instructed by:

Edward Nathan Sonnenbergs, Cape Town

Matsepes Inc, Bloemfontein
For third respondent
David Unterhalter SC (with him Max du Plessis
and Michelle Goodman)

Instructed by:
Nortons Inc, Sandton
McIntyre & Van der Post, Bloemfontein.
For amicus curiae
Tembeka Ngcukaitobi, the heads of argument
having been prepared by Geoff Budlender SC
with Mr Ngcukaitobi.

Instructed by:

Bloemfontein Justice Centre, Bloemfontein.
Supreme Court of Appeal of South Africa

MEDIA SUMMARY– JUDGMENT DELIVERED IN THE SUPREME COURT OF
APPEAL

From:   The Registrar, Supreme Court of Appeal

Date:  29 November 2012

Status:  Immediate

Please note that the media summary is intended for the benefit of the media and does
not form part of the judgment of the Supreme Court of Appeal.

Children’s Resource Centre Trust & others v Pioneer Food & others

The SCA has referred back to the Western Cape High Court an
application by a number of NGOs and five individual consumers for the
certification of a class action against three of the major bread producers,
Pioneer, Premier and Tiger arising out of anti-competitive conduct that
occurred in the Western Cape at the end of 2006. The Court held that
class actions should be recognised, not only in respect of constitutional
claims, but also in any other case where that would be the most
appropriate means of litigating the claims of the members of the class. It
then laid down the requirements for such an action, commencing with the
need for certification by the court at the outset before the issuing of
summons. These are that the court asked to certify such an action must be
satisfied that there is an objectively identifiable class; a cause of action
raising a triable issue, and common issues that can appropriately be dealt
with in the interests of all members of the class. There must be
appropriate procedures for distributing damages to the members of the
class and the representatives must be suitable to conduct the litigation on
behalf of the class.
In remitting the case to the high court the SCA held that the issue
of certification must be determined on complete papers and these must

include draft particulars of claim and affidavits indicating that there is a
prima facie case on the merits. The application had been dealt with as a
matter of urgency and as a result the respondent bread producers had not
been able to put their full case before the court. The appellants’ case had
changed during the course of the litigation. Its definition of the proposed
class was over-broad and the relief it sought inappropriate. However its
claim was potentially plausible and as this was the first time that the SCA
had laid down the requirements for bringing a class action it was
appropriate to afford the appellants an opportunity to remedy the flaws in
their papers in compliance with these new requirements. Once they had
done so the respondents would have the opportunity to put their full case
before the court and the application could be dealt with in accordance
with the procedures laid down by the SCA.