REPUBLIC OF KENYA
IN THE HIGH COURT AT MAKUENI
JUDICIAL REVIEW MISC NO. E003 OF 2025
IN THE MATTER OF AN APPLICATION FOR JUDICIAL REVIEW (ORDERS OF MANDAMUS)
AND
IN THE MATTER OF THE CONSTITUTION OF KENYA
AND
IN THE MATTER OF THE WILDLIFE CONSERVATION AND MANAGEMENT ACT, CAP 376 LAWS OF KENYA
BETWEEN
REPUBLIC ………………….……..……………………………….. APPLICANT
VERSUS
KENYA WILDLIFE SERVICE………….…………….……1 ST RESPONDENT
COUNTY WILDLIFE COMPENSATION
COMMITTEE, MAKUENI…………………………………2 ND RESPONDENT
MINISTERIAL WILDLIFE
COMPENSATION COMMITTE…………………...…….3 RD RESPONDENT
AND
DANIEL MUTUNGA MWANGANGI ……….…… EX – PARTE APPLICANT
JUDGMENT
1. The Application for determination is dated 11/02/2025 and is brought under Order 53 of the Civil Procedure Rules. It seeks;
a) An order of mandamus to compel the Respondents and especially the 1 st Respondent to pay the ex-parte Applicant the sum of kshs 1,800,000.00 recommended by the 2 nd Respondent and approved by the 3 rd Respondent as compensation for the injuries incurred after being attacked and injured by wildlife.
b) The Respondents and especially the 1 st Respondent be and are hereby ordered to comply by paying the ex-parte Applicant the said approved sum within fourteen (14) days from the date of service of the order of mandamus
c) The costs of this Application be borne by the Respondents.
d) Such further or other relief as the honorable court may deem just and expedient to grant.
2. The Application is supported by the grounds in the statutory statements dated 11/02/2025 and the ex-parte Applicant’s verifying affidavits sworn on the same day.
3. He deponed that on 18/10/2020, he was viciously attacked by a crocodile while fetching water at Athi River, occasioning him serious injuries as a result of the 1 st Respondents’ negligence and breach of statutory duty as governed by provisions of the Wildlife Conservation & Management Act (the Act).
4. That, he reported the matter at Athi River police station under OB No 03/19/2020 whereupon the 1 st Respondents’ officers took details and promised to compensate him for the injuries. That, he applied for compensation by filling a claim form provided by the 1 st Respondent. That, the 1 st Respondent convened a meeting of the Community Wildlife Conservation Committee (CWCC), a function which it is tasked, together with making recommendations to Ministerial Wildlife Compensation Committee (MWCC) that validates and approves payment of awards. That, a sum of kshs 1,800,000/= was approved in the year 2020 as per the letter dated 18/08/2023.
5. That, in spite of the foregoing, he is yet to receive the compensation and has on various occasions made follow up but the 1 st Respondent has not been forthcoming with feedback and has been taking him round in circles.
6. That, he has now waited for close to four years and the Respondents are yet to make good the compensation even after requisite meetings and approval of the claim by relevant committees. That, compensation continues to be delayed without any plausible explanation.
7. That, he is apprehensive that unless this court intervenes and compels the Respondents to act on their decision and settle the claim, the Respondents will continue to ignore his demands hence corroding his confidence and that of the general public in the efficiency of administrative processes in Kenya.
8. The Application was opposed through the Replying Affidavit sworn by Ismene Feksi on 10/06/2025 wherein she deponed that she is the 1 st Respondent’s Legal Officer fully conversant with the facts of the case and with authority to act on behalf of the 1 st Respondent. That, the Application is fatally defective and bad in law as it seeks to compel the 1 st Respondent to do that which is not within its mandate. That, the 1 st Respondent is established under section 6 of the Act and its functions are provided for under section 7 of the Act.
9. That, under section 7 of the Act, it is not within the 1 st Respondent’s mandate to constitute, sit and deliberate on the Application claim and compensate the ex-parte Applicant. That, the 2 nd Respondent is established under section 18 of the Act and is mandated to review and recommend payment of compensation on claims resulting from loss or damage caused by wildlife under section 19(1) and 25(2) of the Act. That, the 1 st Respondent is only the secretary to the committee established under section 18 of the Act.
10. That, the ex-parte Applicant was issued with claim compensation forms from the Ministry of Tourism and Wildlife which he filled and returned to the 1 st Respondent for processing and the same was deferred for medical review to ascertain the degree of the injury. The deferral is exhibited as IF 1.
11. That, section 25 of the Act places the role of payment of compensation squarely on the Cabinet Secretary, Ministry of Tourism & Wildlife . That, what the ex-parte Applicant is asking of this honorable court, through the reliefs sought, is tantamount to amendment of legislation through imposition of duty.
12. The Application was canvassed through written submissions.
Ex-Parte Applicant’s Submissions
13. The issues for determination were identified to be;
a) Whether the 1 st Respondent is statutorily bound to manage national parks and reserves?
b) Whether the Ministerial Wildlife Compensation Committee is a legally constituted body under the Act capable of making a decision in the claim process.
c) Whether the 1 st Respondent is mandated to compensate the ex-parte Applicant?
d) Whether the ex-parte Applicant is entitled to the orders of mandamus.
14. As to whether the 1 st Respondent is statutorily bound to manage national parks and reserves, reliance was placed on sections 6 & 7 of the Act for the submission that the 1 st Respondent has a statutory mandate to control wildlife.
15. As to whether the Ministerial Wildlife Compensation Committee is a legally constituted body under the Act capable of making a decision in the claim process, it was submitted that the committee does not exist under the Act and is therefore unknown in law . That the only committee established to handle verification of claims is the County Wildlife Compensation Committee . That, the MWCC is therefore ultra vires and needs to be quashed. Reliance was placed on Republic -vs- Kenya Wildlife Service & 3 Others; Musau (Interested Party) (Judicial Review Miscellaneous Application 54 of 2020) [2022] KEHC 102 (KLR) (7 February 2022) (Ruling) where the court (Muigai J) stated;
“44.Section 18 & 25 of the Wildlife and Conservation & Management Act 2013 provide for the constitution of the County Conservation Compensation Committee to verify the Compensation Claims and make proposals. In this instant the Section 19 of Wildlife and Conservation & Management Act 2013 provide as follows……….; Section 25 Wildlife and Conservation & Management Act 2013 Provides……………
45.Therefore, there is/was no other legal entity mandated by law as the Ministerial Wildlife Conservation Compensation Committee (MWCCC) to carry out verification of compensatory claims.
52.If the legally mandated body CWCCC-Machakos verified the Applicant’s claim and approved compensation, on what legal basis did the Director General intervene?
53.From the above outlined sequence of events in the said exercise this Court finds the decision-making process tainted by illegality; the decision made by the legally instituted body CWCCC was overturned by unknown body called Ministerial Wildlife Compensation Committee which acted without jurisdiction or ultra vires or contrary to the provisions of law or its principles.”
16. This court was urged to find that the rejection was illegal, quash the same and re-affirm the decision and recommendation of the County Wildlife Compensation Committee.
17. As to whether the 1 st Respondent is mandated to compensate the ex-parte Applicant, it was submitted that the procedure to be followed for payment of damages is outlined in section 25 of the Act and reliance placed on Kenya Wildlife Services -vs- Joseph Musyoki Kalonzo [2017] eKLR where the Court of Appeal stated;
“The Appellant admits duty to manage and conserve wildlife. The duty comes with attendant responsibility to shoulder any claims of loss or damage caused by breach of that duty……the Cabinet Secretary referred to in the Act pays the money on behalf of the appellant (KWS). Neither the court nor the parties should concern themselves with the internal arrangements of the appellant as to whether it is the CEO of the appellant or the Cabinet Secretary who should disburse the money.”
18. Further reliance was placed on Kenya Wildlife Service -vs- Rift Valley Agricultural Contractors Ltd (2018) eKLR where the Supreme Court of Kenya stated;
“A global comparison of laws and jurisprudence relating to animal and wildlife management normally provide that an entity charged with such a management task also collects the revenues generated from activities relating to the same. The rationale being that such revenue supports the cost of management and any related outcomes, including compensation for damage made by animals and wildlife…the Wildlife Act gives responsibility to Kenya Wildlife Service as the park revenue collector to compensate for damage occasioned by wild animals.”
19. Consequently, it was submitted that the duty to pay compensation has been positively determined by the Court of Appeal and Supreme Court. That, the 1 st Respondent is liable to compensate the ex-parte Applicant’s claim which has been approved pursuant to the laid down procedure.
20. As to whether the ex-parte Applicant is entitled to orders of mandamus, reliance was placed, inter alia , on Kenya Wildlife Service -vs- Abraham M’ngai M’itumitu [2021] KEHC 7105 (KLR) where the court (Muriithi J) stated;
“[11] Clearly, the appellant having awarded an amount under the Act, further intervention in court could only have been by the appeal process following upon the provision of the section, that is to say through the mechanism of a first appeal to the tribunal and thereafter a second appeal to the Environment and Land Court. The respondent may have opted to pursue its claim for compensation in negligence for damages for personal injury in the civil court as an alternative to the statutory compensation mechanism. Without deciding, I would consider that the respondent may also have pursed judicial review remedy in the High Court, if so advised by his advocates, for the award of the full award of compensation prescribed under the Act. The respondent may also, as he may be advised by his legal advisors, file an application for extension of time to pursue the appeal process set out in section 25 (6) of the Act. The court is not without sympathy for the family of the deceased but it considers that the procedure for the pursuit of compensation therefor was wrong, and the court acted without jurisdiction.”
21. It was submitted that various Judges of the High Court, faced with a similar application as the present one, have held that an ex-parte Applicant is within his/her right to file a judicial review application.
22. In conclusion, it was submitted that the ex-parte Applicant is entitled to an order of mandamus as well as costs.
Submissions by the 1 st Respondent
23. The 1 st Respondent identified the issues for determination to be;
a) Whether the 1 st Respondent is a proper party in these proceedings and if so, whether there was a decision to compensate.
b) Whether the orders sought are available to the ex-parte Applicant.
24. It was submitted that the 1 st Respondent is an improper party in these proceedings and the reliefs sought against them cannot be granted. Reliance was placed on the following;
a) Republic -vs- County Government of Nairobi & 2 Others Ex-Parte Kingpost Limited [2021] eKLR where the court stated;
“In determining these issues, it is crucial to first lay down the principles that guide the Court when dealing with the judicial review remedy of mandamus, which the Ex-parte Applicant is seeking. The Court of Appeal in Commission on Administrative Justice vs Kenya Vision 2030 Delivery Board & 2 others [2019] eKLR stated as follows: “As observed by the Judge and correctly so in our view, the principle that guides the High Court when dealing with the scope and efficacy of an order of mandamus was crystalized by the Court in Kenya National Examination Council v Republic Ex Parte Geoffrey Gathenji Njoroge & 9 others (supra) namely: “The order of mandamus is of most extensive remedial nature and is in the form of a command issuing from the High Court of Justice directed to any person, corporation or inferior tribunal requiring him or them to do some particular thing therein specified which appertains to his or their office and is of the nature of a public duty. Its purpose is to remedy the defects of justice and accordingly it will issue to the end that justice may be done, in all cases where there is a specific legal right, and it may issue in cases where although there is an alternative remedy, yet the mode of redress is not convenient, beneficial and effectual.”
b) Paragraph 90 Halsbury’s Law of England 4th Edition Volume 1 at 111;
“The order must command no more than the party against whom the application is made is legally bound to perform. Where a general duty is imposed, a mandamus cannot require it to be done at once. Where a statute, which imposes a duty leaves discretion as to the mode of performing the duty in the hands of the party on whom the obligation is laid, a mandamus cannot command the duty in question to be carried out in a specific way.”
c) Republic -vs- The Commissioner of Lands and Another ex-Parte Kithinji Murugu M’agere; Nairobi High Court Misc. Application No. 395 of 2012 ;
“A party in a judicial review seeking an order of mandamus must show the existence of a statutory duty conferred or invested by statute upon some person, body of persons or tribunal which such person, body of persons or tribunal has failed to perform…”
d) Republic -vs- Kenya Vision 2030 Delivery Board & Another Ex- parte Eng Judah Abekah [2015] eKLR ;
“From the cited decisions, it is apparent that an order of mandamus will issue to compel the performance of a statutory duty owed to an applicant. Therefore, the fulcrum of an order of mandamus is that a statutory duty must be owed to an applicant and the public officer or public body, after being asked to perform the duty, has refused or failed to discharge that duty and there is no other adequate remedy.”
25. Consequently, it was submitted that an order of mandamus could not issue to compel the 1 st Respondent to perform a statutory duty owed to an Applicant by another institution totally different from the 1 st Respondent.
26. It was submitted that no decision has been made by the 2 nd or 3 rd Respondent compelling the 1 st Respondent to pay the ex-parte Applicant the amount of kshs 1,800,000/=. That, there is no law providing that where such an incident as this occurs, the 1 st Respondent is mandated to settle such an amount with or without the existence of the decision of the 2 nd and 3 rd Respondents. Reference was made to section 7 of the Act for the submission that the 1 st Respondent has no duty to compensate or pay compensation on claims resulting from loss or damage caused by wildlife.
27. It was submitted that the evidence annexed in the Application and relied upon by the ex-parte Applicant is inconclusive. That, there is also no evidence that the 2 nd Respondent has approved the said claim hence the submissions by the ex-parte Applicant are unsubstantiated and cannot be verified by this Honourable Court. That, the submission by the Applicant that the 1 st Respondent should take up the role of the 2 nd Respondent, and compensate the Applicant, is arbitrary and unlawful.
28. That, this court has a duty to interpret the law as is without any modifications whatsoever as well as a duty to examine the evidence adduced before it makes a determination based on the same. Reliance was placed on Republic -vs- County Government of Nairobi & 2 Others Ex-Parte Kingpost Limited [2021] eKLR where the court stated;
“Whereas the Ex-parte Applicant is correct that the 3 rd Respondent is the line minister in matters land, it is apparent that he has no role in these proceedings. This is a case of mis-joinder.”
29. It was submitted that the 1 st Respondent is improperly joined in these proceedings because the duty in question is the duty to compensate for losses and damage caused by wildlife and not the duty to manage wildlife. That, the process for compensation in claims of damage and loss caused by wildlife is clearly set out in sections 24 and 25 of the Act.
30. In conclusion, it was submitted that an order of mandamus can only issue to compel performance of a statutory duty owed to an Applicant and the 1 st Respondent has demonstrated that it has no statutory duty to compensate for claims of loss or damage caused by wildlife.
31. The 2 nd and 3 rd Respondents did not file submissions.
32. I have carefully considered the Application, Replying Affidavit and the rival submissions, it is my considered view that the following issues arise for determination;
a) Whether the 1 st Respondent is a proper party in these proceedings.
b) Whether the order of mandamus should be issued.
Whether the 1 st Respondent is a proper party in these proceedings.
33. The 1 st Respondent (KWS) is established under section 6 of the Act and its functions are outlined under section 7. The Wildlife Compensation Scheme is established under section 24 and according to section 24(2), the scheme shall be used for financing compensation claims for human death or injury or crop and property damage caused by wildlife.
34. According to section 18(2) of the Act, an officer of KWS for the county serves as the secretary of the Community Wildlife Conservation Committee whose functions, under section 19, are;
(a)review and recommend payment of compensation on claims resulting from loss or damage caused by wildlife;
(b)develop and implement, in collaboration with the Service and Community Wildlife Associations, mechanisms for mitigation of human wildlife conflict;
(c)bring together relevant stakeholders to harness participation in conservation and management programmes of wildlife; and
(d)perform such other functions as the Service may require or delegate to it.
35. The procedure for compensation is provided for in section 25 of the Act and according to section 25(2); ‘the County Wildlife Conservation and Compensation Committee established under section 18 shall verify a claim made under subsection (1) and upon verification, submit the claim to the Cabinet Secretary together with its recommendations thereon.’
36. Consequently, the duty of KWS is limited to verifying a claim and submitting it to the Cabinet Secretary together with recommendations thereon. It is therefore evident that KWS is a necessary party, in proceedings of compensation claims, for purposes of informing court whether it has discharged its mandate.
37. Additionally, the necessity of KWS as a party in these proceedings can be deduced from the holding of the Court of Appeal in KWS -vs- Joseph Musyoki Kalonzo (supra).
Whether the order of mandamus should be issued.
38. An order of mandamus is codified in Order 53 of the CPR and it is trite that the purpose of the order is to compel the performance of a public duty as stated by Nyamweya J (as she then was) in Republic -vs- Jomo Kenyatta University of Agriculture and Technology ex parte Elijah Kamau Mwangi [2021] eKLR to wit;
“The purpose of mandamus is to compel the performance of a public duty or any act contrary to or evasive of the law. It therefore lies against a public officer when some specific act or thing, which the law requires to be done, has been omitted. The conditions for its grant are that it must be shown that the public officer has failed to perform his duty; the court will not grant mandamus where there is an alternative remedy available to the applicant; and that it may be refused if the enforcement of the order will pose implementation challenges that require the Court’s supervision.”
39. In this case, it is not in dispute that the ex-parte Applicant sustained injuries as a result of attacks by wildlife namely crocodile. Section 25 of the Act provides;
(1) Where any person suffers any bodily injury or is killed by any wildlife listed under the Third Schedule, the person injured, or in the case of a deceased person, the personal representative or successor or assign, may launch a claim to the County Wildlife Conservation and Compensation Committee within the jurisdiction established under this Act.
(2)The County Wildlife Conservation and Compensation Committee established under section 18 shall verify a claim made under subsection (1) and upon verification, submit the claim to the Cabinet Secretary together with its recommendations thereon.
(3) The Cabinet Secretary shall consider the recommendations made under subsection (2) and where appropriate, pay compensation to the claimant as follows;
(a)in the case of death, five million shillings;
(b)in the case of injury occasioning permanent disability, three million shillings;
(c)in the case of any other injury, a maximum of two million shillings, depending on the extent of injury.
(4)………………………………………
(5)………………………………………
(6)………………………………………
(7)………………………………………
40. The claim compensation form dated 08/12/2021 shows that the 1 st Respondent recommended payment of kshs 1,800,000/= but another letter dated 18/08/2023 from the Ministerial Wildlife Compensation Committee indicates that; ‘ the claim was deferred by the committee for the victim to undergo a medical re-examination to ascertain the degree of injury’.
41. The question which arises at this juncture is whether the CS-Ministry of Tourism & Wildlife has a duty to pay the amounts which have already been assessed by the 1 st Respondent. Indeed, the exhibited status report (IF1) shows that the CWCC recommended an amount of kshs 1,800,000/= but the MWCC deferred it for medical review. The claim compensation form, from the 1 st Respondent, exhibited by the ex-parte Applicant states; ‘Approved payment of 60% amounting to ksh 1.8 M (One Million Eight Hundred Thousand.’ According to the Act, the duty to pay crystalizes once the amount payable is assessed and approved by KWS.
42. The wording of section 25(3) of the Act (Supra) is ‘ The Cabinet Secretary shall consider the recommendations made under subsection (2) and where appropriate, pay compensation to the claimant as follows…. (emphasis added). The Cabinet Secretary is then guided on what is appropriate: The injury and the amount of compensation. There is no other provision on appropriateness. It is specific: Death-Ksh 5m, injury with permanent disability-Ksh 3m, other injury: not more than 2m depending on the injury.
43. The Ministerial Wildlife Compensation Committee is indeed an unknown entity in the Act and as such, its decision to defer payment of the compensation, approved by the County Wildlife Conservation and Compensation Committee, is null and void ab initio .
44. S. 25 (6) of the Act appears to be the only route available should anyone, in my view, including the Cabinet Secretary. It states:
A person who is dissatisfied with the award of compensation by either the County Wildlife Conservation and Compensation Committee or the Service may within thirty days after being notified of the decision and award, file an appeal to the National Environment Tribunal and on a second appeal to the Environment and Land Court.
45. The upshot of the foregoing is that the CS-Ministry of Tourism & Wildlife has a duty to pay the assessed compensation of kshs 1,800,000/= to the ex-parte Applicant. The CS is not directly party to this suit but the purported ‘Ministerial Committee’ through which the CS sought to defer payment is.
46. I recite the Court of Appeal in Kenya Wildlife Service v Joseph Musyoki Kalonzo [2017] KECA 234 (KLR) That t he appellant (KWS) admits the duty to manage and conserve wildlife. KWS has
the attendant responsibility to shoulder any claims of loss or damage caused by the breach of that duty… The cabinet secretary referred to in the Act pays the money on behalf of the appellant. Neither the Court nor the parties should concern themselves with the internal arrangements of the appellant as to whether it is the CEO of the appellant or the cabinet secretary who should disburse the money.
47. I am properly guided. I need not say more. I find the JR application is merited. In the circumstances :
An order of mandamus be and is hereby issued to compel the 1 st Respondent through the Cabinet Secretary envisioned by s. 25 of the Wildlife Conservation and Management Act Cap 376 , to pay the ex-parte Applicant the sum of kshs 1,800,000.00 recommended by the 2 nd Respondent as compensation for the injuries incurred after being attacked and injured by wildlife.
48. The Ex parte applicant will have costs.
Dated, signed and delivered virtually (CTS) this 27 th March 2026
Mumbua T Matheka
Judge
Judgment JR Misc. Application E003 of 2025 Page 2 of 2
IN THE HIGH COURT AT MAKUENI
JUDICIAL REVIEW MISC NO. E003 OF 2025
IN THE MATTER OF AN APPLICATION FOR JUDICIAL REVIEW (ORDERS OF MANDAMUS)
AND
IN THE MATTER OF THE CONSTITUTION OF KENYA
AND
IN THE MATTER OF THE WILDLIFE CONSERVATION AND MANAGEMENT ACT, CAP 376 LAWS OF KENYA
BETWEEN
REPUBLIC ………………….……..……………………………….. APPLICANT
VERSUS
KENYA WILDLIFE SERVICE………….…………….……1 ST RESPONDENT
COUNTY WILDLIFE COMPENSATION
COMMITTEE, MAKUENI…………………………………2 ND RESPONDENT
MINISTERIAL WILDLIFE
COMPENSATION COMMITTE…………………...…….3 RD RESPONDENT
AND
DANIEL MUTUNGA MWANGANGI ……….…… EX – PARTE APPLICANT
JUDGMENT
1. The Application for determination is dated 11/02/2025 and is brought under Order 53 of the Civil Procedure Rules. It seeks;
a) An order of mandamus to compel the Respondents and especially the 1 st Respondent to pay the ex-parte Applicant the sum of kshs 1,800,000.00 recommended by the 2 nd Respondent and approved by the 3 rd Respondent as compensation for the injuries incurred after being attacked and injured by wildlife.
b) The Respondents and especially the 1 st Respondent be and are hereby ordered to comply by paying the ex-parte Applicant the said approved sum within fourteen (14) days from the date of service of the order of mandamus
c) The costs of this Application be borne by the Respondents.
d) Such further or other relief as the honorable court may deem just and expedient to grant.
2. The Application is supported by the grounds in the statutory statements dated 11/02/2025 and the ex-parte Applicant’s verifying affidavits sworn on the same day.
3. He deponed that on 18/10/2020, he was viciously attacked by a crocodile while fetching water at Athi River, occasioning him serious injuries as a result of the 1 st Respondents’ negligence and breach of statutory duty as governed by provisions of the Wildlife Conservation & Management Act (the Act).
4. That, he reported the matter at Athi River police station under OB No 03/19/2020 whereupon the 1 st Respondents’ officers took details and promised to compensate him for the injuries. That, he applied for compensation by filling a claim form provided by the 1 st Respondent. That, the 1 st Respondent convened a meeting of the Community Wildlife Conservation Committee (CWCC), a function which it is tasked, together with making recommendations to Ministerial Wildlife Compensation Committee (MWCC) that validates and approves payment of awards. That, a sum of kshs 1,800,000/= was approved in the year 2020 as per the letter dated 18/08/2023.
5. That, in spite of the foregoing, he is yet to receive the compensation and has on various occasions made follow up but the 1 st Respondent has not been forthcoming with feedback and has been taking him round in circles.
6. That, he has now waited for close to four years and the Respondents are yet to make good the compensation even after requisite meetings and approval of the claim by relevant committees. That, compensation continues to be delayed without any plausible explanation.
7. That, he is apprehensive that unless this court intervenes and compels the Respondents to act on their decision and settle the claim, the Respondents will continue to ignore his demands hence corroding his confidence and that of the general public in the efficiency of administrative processes in Kenya.
8. The Application was opposed through the Replying Affidavit sworn by Ismene Feksi on 10/06/2025 wherein she deponed that she is the 1 st Respondent’s Legal Officer fully conversant with the facts of the case and with authority to act on behalf of the 1 st Respondent. That, the Application is fatally defective and bad in law as it seeks to compel the 1 st Respondent to do that which is not within its mandate. That, the 1 st Respondent is established under section 6 of the Act and its functions are provided for under section 7 of the Act.
9. That, under section 7 of the Act, it is not within the 1 st Respondent’s mandate to constitute, sit and deliberate on the Application claim and compensate the ex-parte Applicant. That, the 2 nd Respondent is established under section 18 of the Act and is mandated to review and recommend payment of compensation on claims resulting from loss or damage caused by wildlife under section 19(1) and 25(2) of the Act. That, the 1 st Respondent is only the secretary to the committee established under section 18 of the Act.
10. That, the ex-parte Applicant was issued with claim compensation forms from the Ministry of Tourism and Wildlife which he filled and returned to the 1 st Respondent for processing and the same was deferred for medical review to ascertain the degree of the injury. The deferral is exhibited as IF 1.
11. That, section 25 of the Act places the role of payment of compensation squarely on the Cabinet Secretary, Ministry of Tourism & Wildlife . That, what the ex-parte Applicant is asking of this honorable court, through the reliefs sought, is tantamount to amendment of legislation through imposition of duty.
12. The Application was canvassed through written submissions.
Ex-Parte Applicant’s Submissions
13. The issues for determination were identified to be;
a) Whether the 1 st Respondent is statutorily bound to manage national parks and reserves?
b) Whether the Ministerial Wildlife Compensation Committee is a legally constituted body under the Act capable of making a decision in the claim process.
c) Whether the 1 st Respondent is mandated to compensate the ex-parte Applicant?
d) Whether the ex-parte Applicant is entitled to the orders of mandamus.
14. As to whether the 1 st Respondent is statutorily bound to manage national parks and reserves, reliance was placed on sections 6 & 7 of the Act for the submission that the 1 st Respondent has a statutory mandate to control wildlife.
15. As to whether the Ministerial Wildlife Compensation Committee is a legally constituted body under the Act capable of making a decision in the claim process, it was submitted that the committee does not exist under the Act and is therefore unknown in law . That the only committee established to handle verification of claims is the County Wildlife Compensation Committee . That, the MWCC is therefore ultra vires and needs to be quashed. Reliance was placed on Republic -vs- Kenya Wildlife Service & 3 Others; Musau (Interested Party) (Judicial Review Miscellaneous Application 54 of 2020) [2022] KEHC 102 (KLR) (7 February 2022) (Ruling) where the court (Muigai J) stated;
“44.Section 18 & 25 of the Wildlife and Conservation & Management Act 2013 provide for the constitution of the County Conservation Compensation Committee to verify the Compensation Claims and make proposals. In this instant the Section 19 of Wildlife and Conservation & Management Act 2013 provide as follows……….; Section 25 Wildlife and Conservation & Management Act 2013 Provides……………
45.Therefore, there is/was no other legal entity mandated by law as the Ministerial Wildlife Conservation Compensation Committee (MWCCC) to carry out verification of compensatory claims.
52.If the legally mandated body CWCCC-Machakos verified the Applicant’s claim and approved compensation, on what legal basis did the Director General intervene?
53.From the above outlined sequence of events in the said exercise this Court finds the decision-making process tainted by illegality; the decision made by the legally instituted body CWCCC was overturned by unknown body called Ministerial Wildlife Compensation Committee which acted without jurisdiction or ultra vires or contrary to the provisions of law or its principles.”
16. This court was urged to find that the rejection was illegal, quash the same and re-affirm the decision and recommendation of the County Wildlife Compensation Committee.
17. As to whether the 1 st Respondent is mandated to compensate the ex-parte Applicant, it was submitted that the procedure to be followed for payment of damages is outlined in section 25 of the Act and reliance placed on Kenya Wildlife Services -vs- Joseph Musyoki Kalonzo [2017] eKLR where the Court of Appeal stated;
“The Appellant admits duty to manage and conserve wildlife. The duty comes with attendant responsibility to shoulder any claims of loss or damage caused by breach of that duty……the Cabinet Secretary referred to in the Act pays the money on behalf of the appellant (KWS). Neither the court nor the parties should concern themselves with the internal arrangements of the appellant as to whether it is the CEO of the appellant or the Cabinet Secretary who should disburse the money.”
18. Further reliance was placed on Kenya Wildlife Service -vs- Rift Valley Agricultural Contractors Ltd (2018) eKLR where the Supreme Court of Kenya stated;
“A global comparison of laws and jurisprudence relating to animal and wildlife management normally provide that an entity charged with such a management task also collects the revenues generated from activities relating to the same. The rationale being that such revenue supports the cost of management and any related outcomes, including compensation for damage made by animals and wildlife…the Wildlife Act gives responsibility to Kenya Wildlife Service as the park revenue collector to compensate for damage occasioned by wild animals.”
19. Consequently, it was submitted that the duty to pay compensation has been positively determined by the Court of Appeal and Supreme Court. That, the 1 st Respondent is liable to compensate the ex-parte Applicant’s claim which has been approved pursuant to the laid down procedure.
20. As to whether the ex-parte Applicant is entitled to orders of mandamus, reliance was placed, inter alia , on Kenya Wildlife Service -vs- Abraham M’ngai M’itumitu [2021] KEHC 7105 (KLR) where the court (Muriithi J) stated;
“[11] Clearly, the appellant having awarded an amount under the Act, further intervention in court could only have been by the appeal process following upon the provision of the section, that is to say through the mechanism of a first appeal to the tribunal and thereafter a second appeal to the Environment and Land Court. The respondent may have opted to pursue its claim for compensation in negligence for damages for personal injury in the civil court as an alternative to the statutory compensation mechanism. Without deciding, I would consider that the respondent may also have pursed judicial review remedy in the High Court, if so advised by his advocates, for the award of the full award of compensation prescribed under the Act. The respondent may also, as he may be advised by his legal advisors, file an application for extension of time to pursue the appeal process set out in section 25 (6) of the Act. The court is not without sympathy for the family of the deceased but it considers that the procedure for the pursuit of compensation therefor was wrong, and the court acted without jurisdiction.”
21. It was submitted that various Judges of the High Court, faced with a similar application as the present one, have held that an ex-parte Applicant is within his/her right to file a judicial review application.
22. In conclusion, it was submitted that the ex-parte Applicant is entitled to an order of mandamus as well as costs.
Submissions by the 1 st Respondent
23. The 1 st Respondent identified the issues for determination to be;
a) Whether the 1 st Respondent is a proper party in these proceedings and if so, whether there was a decision to compensate.
b) Whether the orders sought are available to the ex-parte Applicant.
24. It was submitted that the 1 st Respondent is an improper party in these proceedings and the reliefs sought against them cannot be granted. Reliance was placed on the following;
a) Republic -vs- County Government of Nairobi & 2 Others Ex-Parte Kingpost Limited [2021] eKLR where the court stated;
“In determining these issues, it is crucial to first lay down the principles that guide the Court when dealing with the judicial review remedy of mandamus, which the Ex-parte Applicant is seeking. The Court of Appeal in Commission on Administrative Justice vs Kenya Vision 2030 Delivery Board & 2 others [2019] eKLR stated as follows: “As observed by the Judge and correctly so in our view, the principle that guides the High Court when dealing with the scope and efficacy of an order of mandamus was crystalized by the Court in Kenya National Examination Council v Republic Ex Parte Geoffrey Gathenji Njoroge & 9 others (supra) namely: “The order of mandamus is of most extensive remedial nature and is in the form of a command issuing from the High Court of Justice directed to any person, corporation or inferior tribunal requiring him or them to do some particular thing therein specified which appertains to his or their office and is of the nature of a public duty. Its purpose is to remedy the defects of justice and accordingly it will issue to the end that justice may be done, in all cases where there is a specific legal right, and it may issue in cases where although there is an alternative remedy, yet the mode of redress is not convenient, beneficial and effectual.”
b) Paragraph 90 Halsbury’s Law of England 4th Edition Volume 1 at 111;
“The order must command no more than the party against whom the application is made is legally bound to perform. Where a general duty is imposed, a mandamus cannot require it to be done at once. Where a statute, which imposes a duty leaves discretion as to the mode of performing the duty in the hands of the party on whom the obligation is laid, a mandamus cannot command the duty in question to be carried out in a specific way.”
c) Republic -vs- The Commissioner of Lands and Another ex-Parte Kithinji Murugu M’agere; Nairobi High Court Misc. Application No. 395 of 2012 ;
“A party in a judicial review seeking an order of mandamus must show the existence of a statutory duty conferred or invested by statute upon some person, body of persons or tribunal which such person, body of persons or tribunal has failed to perform…”
d) Republic -vs- Kenya Vision 2030 Delivery Board & Another Ex- parte Eng Judah Abekah [2015] eKLR ;
“From the cited decisions, it is apparent that an order of mandamus will issue to compel the performance of a statutory duty owed to an applicant. Therefore, the fulcrum of an order of mandamus is that a statutory duty must be owed to an applicant and the public officer or public body, after being asked to perform the duty, has refused or failed to discharge that duty and there is no other adequate remedy.”
25. Consequently, it was submitted that an order of mandamus could not issue to compel the 1 st Respondent to perform a statutory duty owed to an Applicant by another institution totally different from the 1 st Respondent.
26. It was submitted that no decision has been made by the 2 nd or 3 rd Respondent compelling the 1 st Respondent to pay the ex-parte Applicant the amount of kshs 1,800,000/=. That, there is no law providing that where such an incident as this occurs, the 1 st Respondent is mandated to settle such an amount with or without the existence of the decision of the 2 nd and 3 rd Respondents. Reference was made to section 7 of the Act for the submission that the 1 st Respondent has no duty to compensate or pay compensation on claims resulting from loss or damage caused by wildlife.
27. It was submitted that the evidence annexed in the Application and relied upon by the ex-parte Applicant is inconclusive. That, there is also no evidence that the 2 nd Respondent has approved the said claim hence the submissions by the ex-parte Applicant are unsubstantiated and cannot be verified by this Honourable Court. That, the submission by the Applicant that the 1 st Respondent should take up the role of the 2 nd Respondent, and compensate the Applicant, is arbitrary and unlawful.
28. That, this court has a duty to interpret the law as is without any modifications whatsoever as well as a duty to examine the evidence adduced before it makes a determination based on the same. Reliance was placed on Republic -vs- County Government of Nairobi & 2 Others Ex-Parte Kingpost Limited [2021] eKLR where the court stated;
“Whereas the Ex-parte Applicant is correct that the 3 rd Respondent is the line minister in matters land, it is apparent that he has no role in these proceedings. This is a case of mis-joinder.”
29. It was submitted that the 1 st Respondent is improperly joined in these proceedings because the duty in question is the duty to compensate for losses and damage caused by wildlife and not the duty to manage wildlife. That, the process for compensation in claims of damage and loss caused by wildlife is clearly set out in sections 24 and 25 of the Act.
30. In conclusion, it was submitted that an order of mandamus can only issue to compel performance of a statutory duty owed to an Applicant and the 1 st Respondent has demonstrated that it has no statutory duty to compensate for claims of loss or damage caused by wildlife.
31. The 2 nd and 3 rd Respondents did not file submissions.
32. I have carefully considered the Application, Replying Affidavit and the rival submissions, it is my considered view that the following issues arise for determination;
a) Whether the 1 st Respondent is a proper party in these proceedings.
b) Whether the order of mandamus should be issued.
Whether the 1 st Respondent is a proper party in these proceedings.
33. The 1 st Respondent (KWS) is established under section 6 of the Act and its functions are outlined under section 7. The Wildlife Compensation Scheme is established under section 24 and according to section 24(2), the scheme shall be used for financing compensation claims for human death or injury or crop and property damage caused by wildlife.
34. According to section 18(2) of the Act, an officer of KWS for the county serves as the secretary of the Community Wildlife Conservation Committee whose functions, under section 19, are;
(a)review and recommend payment of compensation on claims resulting from loss or damage caused by wildlife;
(b)develop and implement, in collaboration with the Service and Community Wildlife Associations, mechanisms for mitigation of human wildlife conflict;
(c)bring together relevant stakeholders to harness participation in conservation and management programmes of wildlife; and
(d)perform such other functions as the Service may require or delegate to it.
35. The procedure for compensation is provided for in section 25 of the Act and according to section 25(2); ‘the County Wildlife Conservation and Compensation Committee established under section 18 shall verify a claim made under subsection (1) and upon verification, submit the claim to the Cabinet Secretary together with its recommendations thereon.’
36. Consequently, the duty of KWS is limited to verifying a claim and submitting it to the Cabinet Secretary together with recommendations thereon. It is therefore evident that KWS is a necessary party, in proceedings of compensation claims, for purposes of informing court whether it has discharged its mandate.
37. Additionally, the necessity of KWS as a party in these proceedings can be deduced from the holding of the Court of Appeal in KWS -vs- Joseph Musyoki Kalonzo (supra).
Whether the order of mandamus should be issued.
38. An order of mandamus is codified in Order 53 of the CPR and it is trite that the purpose of the order is to compel the performance of a public duty as stated by Nyamweya J (as she then was) in Republic -vs- Jomo Kenyatta University of Agriculture and Technology ex parte Elijah Kamau Mwangi [2021] eKLR to wit;
“The purpose of mandamus is to compel the performance of a public duty or any act contrary to or evasive of the law. It therefore lies against a public officer when some specific act or thing, which the law requires to be done, has been omitted. The conditions for its grant are that it must be shown that the public officer has failed to perform his duty; the court will not grant mandamus where there is an alternative remedy available to the applicant; and that it may be refused if the enforcement of the order will pose implementation challenges that require the Court’s supervision.”
39. In this case, it is not in dispute that the ex-parte Applicant sustained injuries as a result of attacks by wildlife namely crocodile. Section 25 of the Act provides;
(1) Where any person suffers any bodily injury or is killed by any wildlife listed under the Third Schedule, the person injured, or in the case of a deceased person, the personal representative or successor or assign, may launch a claim to the County Wildlife Conservation and Compensation Committee within the jurisdiction established under this Act.
(2)The County Wildlife Conservation and Compensation Committee established under section 18 shall verify a claim made under subsection (1) and upon verification, submit the claim to the Cabinet Secretary together with its recommendations thereon.
(3) The Cabinet Secretary shall consider the recommendations made under subsection (2) and where appropriate, pay compensation to the claimant as follows;
(a)in the case of death, five million shillings;
(b)in the case of injury occasioning permanent disability, three million shillings;
(c)in the case of any other injury, a maximum of two million shillings, depending on the extent of injury.
(4)………………………………………
(5)………………………………………
(6)………………………………………
(7)………………………………………
40. The claim compensation form dated 08/12/2021 shows that the 1 st Respondent recommended payment of kshs 1,800,000/= but another letter dated 18/08/2023 from the Ministerial Wildlife Compensation Committee indicates that; ‘ the claim was deferred by the committee for the victim to undergo a medical re-examination to ascertain the degree of injury’.
41. The question which arises at this juncture is whether the CS-Ministry of Tourism & Wildlife has a duty to pay the amounts which have already been assessed by the 1 st Respondent. Indeed, the exhibited status report (IF1) shows that the CWCC recommended an amount of kshs 1,800,000/= but the MWCC deferred it for medical review. The claim compensation form, from the 1 st Respondent, exhibited by the ex-parte Applicant states; ‘Approved payment of 60% amounting to ksh 1.8 M (One Million Eight Hundred Thousand.’ According to the Act, the duty to pay crystalizes once the amount payable is assessed and approved by KWS.
42. The wording of section 25(3) of the Act (Supra) is ‘ The Cabinet Secretary shall consider the recommendations made under subsection (2) and where appropriate, pay compensation to the claimant as follows…. (emphasis added). The Cabinet Secretary is then guided on what is appropriate: The injury and the amount of compensation. There is no other provision on appropriateness. It is specific: Death-Ksh 5m, injury with permanent disability-Ksh 3m, other injury: not more than 2m depending on the injury.
43. The Ministerial Wildlife Compensation Committee is indeed an unknown entity in the Act and as such, its decision to defer payment of the compensation, approved by the County Wildlife Conservation and Compensation Committee, is null and void ab initio .
44. S. 25 (6) of the Act appears to be the only route available should anyone, in my view, including the Cabinet Secretary. It states:
A person who is dissatisfied with the award of compensation by either the County Wildlife Conservation and Compensation Committee or the Service may within thirty days after being notified of the decision and award, file an appeal to the National Environment Tribunal and on a second appeal to the Environment and Land Court.
45. The upshot of the foregoing is that the CS-Ministry of Tourism & Wildlife has a duty to pay the assessed compensation of kshs 1,800,000/= to the ex-parte Applicant. The CS is not directly party to this suit but the purported ‘Ministerial Committee’ through which the CS sought to defer payment is.
46. I recite the Court of Appeal in Kenya Wildlife Service v Joseph Musyoki Kalonzo [2017] KECA 234 (KLR) That t he appellant (KWS) admits the duty to manage and conserve wildlife. KWS has
the attendant responsibility to shoulder any claims of loss or damage caused by the breach of that duty… The cabinet secretary referred to in the Act pays the money on behalf of the appellant. Neither the Court nor the parties should concern themselves with the internal arrangements of the appellant as to whether it is the CEO of the appellant or the cabinet secretary who should disburse the money.
47. I am properly guided. I need not say more. I find the JR application is merited. In the circumstances :
An order of mandamus be and is hereby issued to compel the 1 st Respondent through the Cabinet Secretary envisioned by s. 25 of the Wildlife Conservation and Management Act Cap 376 , to pay the ex-parte Applicant the sum of kshs 1,800,000.00 recommended by the 2 nd Respondent as compensation for the injuries incurred after being attacked and injured by wildlife.
48. The Ex parte applicant will have costs.
Dated, signed and delivered virtually (CTS) this 27 th March 2026
Mumbua T Matheka
Judge
Judgment JR Misc. Application E003 of 2025 Page 2 of 2