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IN THE HIGH COURT OF DELHI AT NEW DELHI

Pronounced on: 04th August, 2016

W.P.(C) No.5888/2015 & CM Nos.10642/2015, 11083/2015,

13153/2015, 23565/2015, 5182/2016, 5183/2016, 12676/2016 &
16088/2016
GOVERNMENT OF NATIONAL CAPITAL
TERRITORY OF DELHI

.Petitioner

Versus
UNION OF INDIA
+

Respondent

W.P.(C) No.7887/2015 & CM Nos.15903/2015 & 13616/2016

RAJENDER PRASHAD

..... Petitioner

Versus
GOVT. OF NCT OF DELHI
+

..... Respondent

W.P.(C) No.7934/2015 & CM Nos.12753/2016, 16063/2015 &

16063/2016
NARESH KUMAR

..... Petitioner

Versus
GOVT. OF NCT OF DELHI & ORS
+

..... Respondents

W.P.(C) No. 8190/2015 & CM No.12752/2016

SANDEEP TIWARI

..... Petitioner

Versus
GOVERNMENT OF NCT OF DELHI & ORS.

W.P.(C) 5888/2015 & batch

..... Respondents

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W.P.(C) No. 8382/2015 & CM Nos.17862/2015, 23564/2015,

25388/2015, 25389/2016 & 12674/2016
M.A. USMANI

..... Petitioner

Versus
UNION OF INDIA & ORS
+

..... Respondents

W.P.(C) No.8867/2015 & CM Nos.19859/2015, 20896/2015,

12673/2016 & 20304/2016
UNION OF INDIA & ANR.

..... Petitioners

Versus
GOVT OF NCT OF DELHI & ANR.
+

..... Respondents

W.P.(C) No.9164/2015 & CM No.12754/2016

SANDEEP TIWARI

..... Petitioner

Versus
GOVERNMENT OF NCT OF DELHI & ORS
+

..... Respondents

W.P.(C) No.348/2016 & CM Nos. 1425/2016 & 13619/2016

RAMAKANT KUMAR

..... Petitioner

Versus
GOVERNMENT OF NCT OF DELHI
+

..... Respondent

W.P.(Crl.) No.2099/2015 & Crl.M.A. Nos.13920/2015 & 4864/2016

GOVERNMENT OF NATIONAL CAPITAL
TERRITORY OF DELHI

.Petitioner

Versus
NITIN MANAVAT & ORS

W.P.(C) 5888/2015 & batch

.Respondents

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Advocates who appeared in the matters:

For Petitioners:

Mr. Rajeev Dhawan, Mr. Dayan Krishnan, Ms. Indira

Jaising, Mr. H.S. Phoolka, Sr. Advocates with Mr.Rahul
Mehra, Sr.Standing Counsel, Mr.Sanjoy Ghose, ASC,
Ms.Pratishtha Vij, Ms.Meher Dev & Mr. Rohan, Advs.
for petitioner/GNCTD in W.P.(C) No.5888/2015.
Mr. Sanjay Jain, ASG with Mr.Kirtiman Singh,
Ms.Prerna Shah Deo, Mr.W.A. Noor, Mr. Vidur Mohan,
Mr.Evanesh Bhardwaj, Mr. Aakash, Advs. for
petitioner/UOI in W.P.(C) No.8867/2015.
Mr. Siddharth Luthra, Sr. Advocate with Mr.Neeraj
K.Mishra, Mr.Gautam Khazanchi, Ms.Tara Narula,
Advs. for the petitioner in W.P.(C) No.8382/2015.
Mr.Sudhir Nandrajog and Mr.P.P.Rao, Sr.Advs. with
Mr.Rahul Mehra, Sr.Standing Counsel, Mr.Gautam
Narayan, Mr.Sanjoy Ghose and Mr.Peeyoosh Kalra,
Ms.Nandita Rao, ASCs for petitioner/GNCTD in
WP(Crl.) No.2099/2015.
Mr. Kirti Uppal, Sr. Advocate with Mr.Vaibhav Vats,
Ms.Arpita Rai, Ms. Sahiba Pantel, Advocates for the
petitioners in W.P.(C) Nos.9164/2015 & 8190/2015.
Shri Abhik Kumar and Shri Vivek Singh, the learned
counsels for the petitioner in W.P.(C) No.7887/2015.
Mr. O.P. Saxena, Advocates for the petitioner in W.P.(C)
No.7934/2015.
Mr. Neeraj Gupta, Adv. along with petitioner in person in
W.P.(C) No.348/2016.

For Respondents: Mr. Sanjay Jain, ASG with Mr.Kiritiman Singh, CGSC,
Mr.Ripu Daman Bhardwaj, CGSC, Mr.Akshay Makhija,
CGSC, Mr.Dev P. Bhardwaj, Mr. Sanjeev Uniyal,
Ms.Prerna Shah Deo, Mr.Waize Ali Noor, Mr.Gyanesh

W.P.(C) 5888/2015 & batch

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Bhardwaj, Mr.Vidur Mohan, Ms.Sanjugeeta Moktan &

Mr.Sumant Bhushan, Advs. for Union of India.
Mr. Rajeev Dhawan, Mr. Dayan Krishnan, Ms. Indira
Jaising, Mr. H.S. Phoolka, Mr. Rajiv Dutta, Mr.Raju
Ramachandran, Mr. Biswajit Bhattacharya, Mr.P.P.Rao,
Mr.S.Gurukrishna Kumar, Sr. Advocates with Mr.Rahul
Mehra, Sr.Standing Counsel, Mr.Sanjoy Ghose, ASC,
Mr. Gautam Narayan, ASC, Mr.Peeyoosh Kalra, ASC
Ms.Pratishtha Vij, Ms.Meher Dev & Mr. Rohan,
Mr.R.A.Iyer, Ms.Shikha Sandhu, Advs. for the
respondent/GNCTD.
Mr.Kiritiman Singh, Advocate for R-10 in W.P.(Crl.)
No.2099/2015.
For Intervener:

Dr. A.M. Singhvi, Sr. Advocate with Mr.R.S. Prabhu,

Adv. for applicant in CM Nos.5182/2016 & 5183/2016 in
W.P.(C) No.5888/2015.

CORAM:
HON'BLE THE CHIEF JUSTICE
HON'BLE MR. JUSTICE JAYANT NATH
JUDGMENT
:

Ms.G.ROHINI, CHIEF JUSTICE

1.

Though based on different set of facts, the controversy in all the

petitions centers on common issues relating to the exercise of legislative

power and executive control in the administration of National Capital
Territory of Delhi (NCTD).
2.

The parties to the writ petitions and the orders impugned have been

set out in the following Table so as to get a glimpse of the controversy

involved in each writ petition.
W.P.(C) 5888/2015 & batch

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Sl.No.

Writ Petition

Parties

Impugned order/action

1.

W.P.(C) No.5888/2015

GNCTD vs. UOI

Notifications dated 21.05.2015 and 23.07.2014

issued by the Govt. of India, Ministry of Home
Affairs empowering the Lt. Governor to exercise
the powers in respect of matters connected with
'Services' and directing the ACB Police Station not
to take cognizance of offences against officials of
Central Government.

2.

W.P.(C) No.7887/2015 Rajender Prashad

vs. GNCTD &
Ors.

Notification dated 11.08.2015 issued by the

Directorate of Vigilance, GNCTD under the
Commissions of Inquiry Act, 1952 without placing
before the Lieutenant Governor for his
views/concurrence.

3.

W.P.(C) No.7934/2015 Naresh Kumar vs.

GNCTD & Ors.

Notification dated 04.08.2015 issued by the

Revenue Department, GNCTD revising minimum
rates of agricultural land (circle rates) under the
provisions of Indian Stamp Act, 1899 and Delhi
Stamp (Prevention of Undervaluation of
Instrument) Rules without placing before the
Lieutenant Governor for his views/concurrence.

4.

W.P.(C) No.8190/2015 Sandeep Tiwari

vs. GNCTD &
Ors.

Order passed by the Department of Power,

GNCTD under Delhi Electricity Reforms Act,
2000 read with Delhi Electricity Reforms (Transfer
Scheme) Rules, 2001 appointing the Nominee
Directors on Board of Electricity Distribution
Companies without placing before the Lieutenant
Governor for his views/concurrence.

5.

W.P.(C) No.8382/2015 M.A. Usmani vs.

UOI & Anr.

Notification dated 11.08.2015 issued by the

Directorate of Vigilance, GNCTD under the
Commissions of Inquiry Act, 1952 without placing
before the Lieutenant Governor for his
views/concurrence.

6.

W.P.(C) No.8867/2015 UOI vs. GNCTD

& Anr.

Notification dated 11.08.2015 issued by the

Directorate of Vigilance, GNCTD under the
Commissions of Inquiry Act, 1952 without placing
before the Lieutenant Governor for his
views/concurrence.

7.

W.P.(C) No.9164/2015 Sandeep Tiwari

vs. GNCTD &
Ors.

Policy Directions dated 12.06.2015 issued by the

Department of Power, GNCTD under Section 108
of Electricity Act, 2003 without placing before the
Lieutenant Governor for his views/concurrence.

8.

W.P.(C) No.348/2016

Ramakant Kumar
vs. GNCTD

Notification dated 22.12.2015 issued by the

Directorate of Vigilance, GNCTD under
Commission of Inquiry Act, 1952 constituting the
Commission of Inquiry without placing before the
Lieutenant Governor for his views/concurrence.

9.

W.P.(Crl.)
No.2099/2015

GNCTD vs. Nitin

Manawat

Order passed by the Lt.Governor, NCT of Delhi

under Section 24 of Cr.P.C. appointing a Special
Public Prosecutor to conduct the trial in FIR
No.21/2012 in the Special Court under PC Act.

3.

Except W.P.(C) No.5888/2015 and W.P.(Crl.) No.2099/2015, in all

other writ petitions the impugned orders have been challenged primarily on
the ground that the said orders having been passed without placing the
W.P.(C) 5888/2015 & batch

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decision of the Council of Ministers before the Lt. Governor for his
concurrence/views are illegal and unconstitutional. Out of the said petitions,
W.P.(C) No.8867/2015 has been filed by the Union of India whereas the rest
of the petitions are more or less in the nature of public interest litigation.
4.

W.P.(C) No.5888/2015 and W.P.(Crl.) No.2099/2015 have been filed

by the Govt. of NCT of Delhi (GNCTD).

The grievance in

W.P.(C) No.5888/2015 is that by virtue of the impugned notifications, the

legislative and executive powers conferred on the Govt. of NCT of Delhi
under

Article 239AA of the Constitution in respect of matters relating to

"services" have been withdrawn and are sought to be exercised by the

Central Government, apart from curtailing the powers of

the Anti

Corruption Branch of Government of NCT of Delhi to take cognizance of

offences against the officers, employees and functionaries of the Central
Government.

The primary contention is that the said notifications are

contrary to the Constitutional scheme.

5.

In W.P.(Crl.) No.2099/2015, the appointment of a Special Public

Prosecutor by the Lt.Governor has been challenged contending inter alia

that the Lt.Governor of NCT of Delhi is not competent either to appoint a
Special Public Prosecutor independently or to interfere with the appointment
made by the Govt. of NCT of Delhi, having regard to the scheme of
Article 239AA of the Constitution of India (for short 'Constitution') read
with the provisions of the Government of NCT of Delhi Act, 1991 and the
Rules made thereunder.
6.

Before proceeding further, it is necessary to place on record that the

hearing in this batch of writ petitions had commenced on 24.09.2015 on

which date Shri Dayan Krishnan, the learned Senior Advocate appearing for
W.P.(C) 5888/2015 & batch

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the petitioner/GNCTD in W.P.(C) No.5888/2015 (agreed to be taken as a

lead case) was heard in part.

He had concluded his arguments on

02.11.2015 and thereafter from 27.01.2016 onwards, we had heard

Shri Sanjay Jain, the learned ASG appearing for the respondents/Union of
India in W.P.(C) No.5888/2015 on various dates till 25.02.2016.
7.

At the request of the learned counsel for both the parties, the further

hearing was adjourned from time to time to enable them to file the written
synopsis in W.P.(C) No.5888/2015.
8.

On 04.04.2016, fresh applications came to be filed on behalf of the

Government of NCT of Delhi in all the writ petitions except

W.P.(C) No.5888/2015, with a prayer to refer the petitions to a Larger
Bench contending that there is a conflict between the judgments rendered by
the coordinate Benches of this Court in Om Prakash Pahwa v. State of
Delhi; (1998) 46 DRJ 719, United RWAS Joint Action v. Union of India;
W.P.(C) No.895/2011 and batch dated 30.10.2015 and Delhi High Court
Bar Association v. Union of India; (2013) 203 DLT 129 on the issue
whether the Lt.Governor is bound by the aid and advice of the Council of
Ministers under clause (4) of Article 239AA.
9.

The submissions on behalf of both the parties on the said applications

were heard on 05.04.2016. Though the learned Senior Counsel, Ms.Indira

Jaising appearing for GNCTD/applicant insisted on passing an order on the
abovesaid applications stating that it is necessary to decide the same as a
preliminary issue, we declined to do so having regard to the settled principle
of law that a case cannot be referred to a larger Bench on mere asking of a
party but it is essential for this Court to take into consideration various
factors including the applicability of the ratio decidendi of the judgment of
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co-ordinate Benches to the facts of the case on hand and a decision in that
regard can be taken only after the hearing is concluded in all the writ
petitions. Hence, the said applications were tagged on to the writ petitions
for passing an appropriate order while deciding the main petitions.
10.

From 06.04.2016 to 03.05.2016, the hearing was taken up almost on

day-to-day basis during which we heard Shri Siddharth Luthra and Shri Kirti
Uppal, the learned Senior Advocates appearing for the petitioners in
W.P.(C) Nos.8382/2015 and 8190/2015 & 9164/2015 respectively apart
from Shri Abhik Kumar, Shri Vivek Singh and Shri Neeraj Gupta,
Advocates who appeared for the petitioners in the other writ petitions.
11.

We also heard Shri Sanjay Jain, the learned ASG appearing for the

Union of India/petitioner in W.P.(C) Nos.8867/2015 and in all the other writ

petitions in which the Union of India is arrayed as a respondent.
12.

In W.P.(Crl.) No.2099/2015 filed by the Government of NCT of

Delhi, Shri P.P. Rao, Senior Advocate had appeared for the Government of
NCT of Delhi/petitioner. In other writ petitions where Government of NCT
of Delhi has been arrayed as a respondent, Mr.Rajeev Dhawan, Ms. Indira
Jaising, Shri Rajiv Dutta, Shri Biswajit Bhattacharyya, Shri Raju
Ramachandran, Shri H.S. Phoolka and Shri Sudhir Nandrajog, Senior
Advocates had appeared for the Government of NCT of Delhi. We heard all
the Senior Advocates extensively.
13.

On 03.05.2016, we also heard Dr.A.M. Singhvi, the learned Senior

Advocate who appeared on behalf of the applicant in C.M. Nos. 5182/2016

and 5183/2016 in W.P.(C) No.5888/2015 in which the applicant sought for
impleadment as a party respondent and further to call for the record in
W.P.(C) No.2775/2015 and decide the same along with the present batch of
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petitions. The applicant - Reliance Industries Ltd. - is the petitioner in

W.P.(C) No.2775/2015 filed for quashing FIR No.17/2014 by the
Anti-Corruption Branch of NCTD contending inter alia that ACB does not
have jurisdiction to register an FIR and undertake investigation in respect of
the offence under Prevention of Corruption Act, 1988 alleged to have been
committed by the officials, employees and functionaries of the Central
Government in conspiracy with private person. The said writ petition is
pending on the roster Single Bench. As the validity of the notifications
issued from time to time under Section 2(s) of Code of Criminal Procedure,
1973 (Cr.P.C.) empowering ACB, NCTD is under challenge in
W.P.(C) No.5888/2015 being heard by us, the applicant prayed for
impleadment and further to call for the record in W.P.(C) No.2775/2015
pending before a Single Bench of this Court. Having gone through the file
in W.P.(C) No.2775/2015, we found that the said petition involves various
other issues apart from the jurisdiction of ACB, NCTD to take cognizance of
FIR No.17 of 2015.

Hence, we declined to call for the record in

W.P.(C) No.2775/2015. However, we allowed the applicant to intervene

and address arguments on the legal issue which is common to the applicant's
writ petition and the petitions pending before us.

Thus, we heard

Dr.A.M. Singhvi on legal issues and the written arguments filed by him have
been taken on record.
14.

While the arguments in the writ petitions were about to be concluded,

two applications, i.e., C.M.No.16088/2016 in W.P.(C)No.5888/2015 and

C.M. No.16063/2016 in W.P.(C) No.7934/2016 came to be filed on behalf
of the Government of NCT of Delhi on 02.05.2016 seeking stay of

W.P.(C) 5888/2015 & batch

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proceedings in the writ petitions stating that a suit has been filed before the
Supreme Court of India under Article 131 of the Constitution.
15.

To enable the non-applicants to file their response, the said

applications were adjourned to 09.05.2016 and thereafter to 16.05.2016 at

the request of the applicant to file the rejoinder.
16.

Ms. Indira Jaising, the learned Senior Advocate appearing for the

applicant/GNCTD and Shri Sanjay Jain, the learned ASG appearing for the
Union of India made their submissions on 23.05.2016 and 24.05.2016 on
C.M. No.16088/2016 in W.P.(C) No.5888/2015 and C.M. No.16063/2016 in
W.P.(C) No.7934/2016. On 24.05.2016, another application being
C.M. No.20304/2016 in W.P.(C) No.8867/2015 came to be filed by GNCTD
with the same prayer to stay the proceedings on the ground of the Original
Suit filed under Article 131 of the Constitution. However, it was represented
by the learned counsels for both the parties that they are adopting the
arguments in CM Nos.16088 and 16063/2016 and there is no need of further
hearing in the fresh application. Accordingly on 24.05.2016, we reserved
the orders in the said three applications as well the main writ petitions.
C.M. No.16088/2016 in W.P.(C) No.5888/2015
C.M. No.16063/2016 in W.P.(C) No.7934/2016
C.M. No.20304/2016 in W.P.(C) No.8867/2015
(Applications filed on behalf of Govt. of NCT of Delhi seeking stay of the
proceedings in the writ petitions till the adjudication of Original Suit No.2 of 2016
filed by it in the Supreme Court of India under Article 131 of the Constitution of
India)

17.

As noticed earlier, these three applications have been filed by the

Government of NCT of Delhi with a prayer to stay all further proceedings in

the batch of writ petitions heard by us till the adjudication of the Original
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Suit filed by it before the Supreme Court under Article 131 of the
Constitution pleading that:"These petitions raise the question of distribution of legislative
powers under Article 239AA between the GNCTD on the one
hand and the Union of India on the other hand and under the
Constitution of India. It is the contention of the GNCTD that
the said powers under the impugned notification fall within the
legislative competence of the GNCTD whereas it is the
contention of the Union of India that they fall within its
competence. Although some petitions have been filed by
private parties against the GNCTD, the GNCTD and UOI have
both claimed legislative and executive powers exclusive to each
other. The said petitions therefore raise a dispute of a federal
nature between the GNCTD and the Union of India."
18.

It is also pleaded that the substantial questions of law raised in the

Suit before the Supreme Court are all disputes of a federal nature capable of
resolution exclusively by the Supreme Court under Article 131 of the
Constitution and since the writ petitions pending before this Court also
involve the very same questions, it is necessary to stay all further
proceedings in the writ petitions till the Suit filed under Article 131 of the
Constitution is adjudicated.
19.

Counter affidavits have been filed on behalf of the Union of India,

Ministry of Home Affairs contending that filing of the applications after

entire hearing in the main writ petitions along with the other batch of
petitions is concluded is nothing but abuse of process of the court
particularly in the light of the order of the Supreme Court dated 12.04.2016
in SLP (CRL.) No.282/2016 titled NCT of Delhi & Ors. v. Rabia alias
Mamta & Ors. directing that the petitions pending in this Court be decided
by the end of July, 2016.
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20.

On merits, it is contended that it is wrong to claim that there is a

dispute between the Government of India on one side and the Government
of NCT of Delhi on the other side. It is also contended that the Government
of NCT of Delhi is not a State but a Union Territory as per the
First Schedule of the Constitution and thus the contention that a dispute of a
federal nature is involved in the petitions pending before this Court is
untenable.
21.

Ms. Indira Jaising, the learned Senior Advocate appeared on behalf of

the Govt. of NCT of Delhi/applicant in all the applications. Reiterating the

plea that the disputes and differences between GNCTD and the Union of
India which have been the subject matter of the petitions pending before this
Court raised a dispute of a federal nature, it is vehemently contended by the
learned Senior Advocate that such a dispute can only be decided by the
Supreme Court of India under Article 131 of the Constitution. It is also
contended that since the Union of India has been attempting to infringe upon
the Constitutional right vested with GNCTD to exercise its executive and
legislative powers over the NCT of Delhi in terms of Article 239AA, the
only remedy available is to invoke the exclusive jurisdiction of the Supreme
Court under Article 131. It is also sought to be contended that though some
of the petitions in the present batch have been filed by private individuals,
the said petitions still raise questions concerning the Constitutional scheme
which are fundamentally of a federal nature and therefore, the questions
raised in the said petitions also need adjudication by the Supreme Court and
not by this Court. In support of the said submission, the learned Senior
Advocate placed reliance upon State of Rajasthan v. Union of India; (1977)
3 SCC 592, State of Karnataka v. Union of India and Anr.; (1977) 4 SCC
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608 and a decision of the High Court of Gujarat in Babubhai Jashbhai

Patel v. Union of India; AIR 1983 Gujarat 1.
22.

In support of the further contention that the questions of law that are

the subject matter of the present batch of petitions between federal units are
exclusively triable by the Supreme Court of India by virtue of Article 131 of
the Constitution and therefore, they cannot be dealt with by this Court under
Article 226, the learned Senior Advocate relied upon the Full Bench
decision of the High Court of Punjab and Haryana in State of Punjab v.
Union of India; AIR 1971 P&H 155 and State of Karnataka v. Union of
India (supra).
23.

Rebutting the contention of the non-applicants that the applications

which have been filed at the fag end of proceedings are misconceived, it is
contended by the learned Senior Advocate that the fact that objection to the
jurisdiction of this Court has been raised at a belated stage is of no
consequence as there is inherent want of jurisdiction in this Court to deal
with the disputes of federal nature and consequently, any judgment rendered
by this Court would be void ab initio. In support of her submission that
consent of parties does not confer jurisdiction, reliance has been placed by
the learned Senior Advocate upon A.R. Antulay v. R.S. Nayak; (1988) 2
SCC 602, Chiranji Lal Shrilal Goenka v. Jasjit Singh; (1993) 2 SCC 507,
Gujarat Maritime Board v. G.C. Pandya; (2015) 12 SCC 403 and Ariane
Orgachen Pvt. Ltd. v. Wyeth Employees Union; (2015) 7 SCC 561.
24.

Ms. Indira Jaising has also drawn our attention to Section 3(60) of the

General Clauses Act, 1897 to substantiate her contention that GNCTD is a

State for the purpose of Article 131 of the Constitution. To substantiate her
contention that NCT of Delhi has been treated as a State for the purpose of
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Article 131 of the Constitution, she has also brought to our notice that
Original Suit No.3/2014 filed by the State of Rajasthan against the Govt. of
NCT of Delhi has been entertained by the Supreme Court.
25.

Per contra, it is contended by Shri Sanjay Jain, the learned ASG that

Article 131 of the Constitution which confers original jurisdiction on the

Supreme Court to the exclusion of any other court in respect of any dispute
between the Government of India and one or more States or between two or
more States is not attracted at all to the present case since Government of
NCT of Delhi is not a State but a Union Territory. For the same reason, it is
contended that the dicta in State of Rajasthan v. Union of India (supra),
State of Karnataka v. Union of India and Anr. (supra) and Babubhai
Jashbhai Patel v. Union of India (supra) is not applicable to the case on
hand. Pointing out to the expression "Subject to the provisions of this
Constitution" as appeared in Article 131 and placing reliance upon the Full
Bench decision of the High Court of Andhra Pradesh in Union of India v.
State of A.P.; 1996 Law Suit (AP) 152, it is contended by the learned ASG
that the contention on behalf of the applicant that the jurisdiction of this
Court under Article 226 is ousted by Article 131 is untenable. The learned
ASG has also cited L. Chandra Kumar v. Union of India and Others;
(1997) 3 SCC 261 in support of his submission that jurisdiction conferred on
the High Court under Article 226/227 of the Constitution being a part of the
basic structure of Constitution, the power of judicial review, ordinarily, can
never be ousted or excluded. Reliance has also been placed upon State of
Madhya Pradesh v. Union of India; (2011) 12 SCC 268 to substantiate the
submission that for determination of questions relating to validity of Central
or other laws, normally appropriate forum is writ jurisdiction under
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Articles 32 and 226, but not an original suit under Article 131 of the
Constitution.
26.

In her reply arguments, Ms.Indira Jaising, the learned Senior

Advocate while seeking to distinguish all the decisions cited by the learned
ASG on facts, strenuously contended that there is nothing in Article 226 or
any other provisions of the Constitution which enables the filing of a writ
petition for adjudication of a dispute which would fall within the ambit of
Article of 131 of the Constitution. In the written submissions filed on behalf
of Govt. of NCT of Delhi, reliance has also been placed upon I.R. Coelho
(dead) by LRS. v. State of T.N.; (2007) 2 SCC 1, Oriental Insurance Co.
Ltd. v. Meena Variyal & Ors.; AIR 2007 SC 1609, Municipal Corporation
of Delhi v. Gurnam Kaur; (1989) 1 SCC 101, Union of India & Ors. v
State of Mysore; (1976) 4 SCC 531, In re: Cuvery Water Disputes
Tribunal; 1993 Supp. (1) SCC 96 (II), South India Corporation (P) Ltd. v.
Secretary, Board of Revenue & Anr.; AIR 1964 SC 207, Union of India &
Ors. v. Major General Sh.Kant Sharma & Anr.; (2015) 6 SCC 773 and
State of Jharkhand v. State of Bihar & Anr;. (2015) 2 SCC 431 to
substantiate the contention that this Court cannot proceed with the batch of
writ petitions pending on the file of this Court.
27.

For proper appreciation of the submissions noticed above, we shall

first refer to Article 131 of the Constitution.

"131. Original jurisdiction of the Supreme Court - Subject
to the provisions of this Constitution, the Supreme Court shall,
to the exclusion of any other court, have original jurisdiction in
any dispute
(a) between the Government of India and one or more States; or

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(b) between the Government of India and any State or States on

one side and one or more other States on the other; or
(c) between two or more States,
if and in so far as the dispute involves any question (whether
of law or fact) on which the existence or extent of a legal
right depends:
Provided that the said jurisdiction shall not extend to a dispute
arising out of any treaty, agreement, covenant, engagements,
and or other similar instrument which, having been entered into
or executed before the commencement of this Constitution,
continues in operation after such commencement, or which
provides that the said jurisdiction shall not extend to such a
dispute."
(emphasis supplied)
28.

While considering the precise scope of Article 131 of the Constitution

it was observed by the Seven Judge Bench of the Supreme Court in

State of Rajasthan v. Union of India; (1977) 3 SCC 592 that the true
construction of Article 131 of the Constitution is that a dispute must arise
between the Union of India and a State and that it cannot be which arises out
of differences between the Government in office at the Centre and the
Government in office in the State. It was also explained that the purpose of
Article 131 is to provide a forum for resolution of disputes which must
involve a question based on the existence or extent of a legal right and not a
mere political issue. The relevant paragraphs from the State of Rajasthan v.
Union of India (supra) may usefully be reproduced hereunder:
"110. The dispute between the Union of India and a State
cannot but be a dispute which arises out of the differences
between the Government in office at the Centre and the
Government in office in the State. In office means in power
but the use of the latter expression may prudently be avoided
with the realisation of what goes with power. But there is a
further prerequisite which narrows down the ambit of the
class of disputes which fall within Article 131. That
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requirement is that the dispute must involve a question,

whether of law or fact, on which the existence or extent of a
legal right depends. It is this qualification which affords the
true guide for determining whether a particular dispute is
comprehended within Article 131. Mere wrangles between
governments have no place in the scheme of that article.
They have to be resolved elsewhere and by means less
solemn and sacrosanct than a court proceeding. The
purpose of Article 131 is to afford a forum for the resolution
of disputes which depend for their decision on the existence
or extent of a legal right. It is only when a legal, not a mere
political, issue arises touching upon the existence or extent
of a legal right that Article 131 is attracted.
XXXXX

XXXX

XXXXX

163. Article 131 speaks of a legal right. That legal right must
be that of the State. The dispute about a legal right, its
existence or extent, must be capable of agitation between the
Government of India and the States. The character of the
dispute within the scope of Article 131 that emerges is with
regard to a legal right which the States may be able to claim
against the Government. For example, the States as a party
must affirm a legal right of its own which the Government of
India has denied or is interested in denying giving rise to a
cause of action. For the purpose of deciding whether Article
131 is attracted the subject-matter of the dispute, therefore,
assumes great importance."
(emphasis supplied)
29.

The nature, scope and applicability of Article 131 of the Constitution

again fell for consideration by another Seven Judge Bench of the Supreme
Court in State of Karnataka v. Union of India; (1977) 4 SCC 608.
Reiterating the principles laid down in State of Rajasthan v. Union of India
(supra), it was held:

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"146. It has to be remembered that Article 131 is traceable to

Section 204 of the Government of India Act. The jurisdiction
conferred by it thus originated in what was part of the federal
structure set up by the Government of India Act, 1935. It is a
remnant of the federalism found in that Act. It should, therefore,
be widely and generously interpreted for that reason too so as to
advance the intended remedy. It can be invoked, in my opinion,
whenever a State and other States or the Union differ on a
question of interpretation of the Constitution so that a decision
of it will affect the scope or exercise of governmental powers
which are attributes of a State. It makes no difference to the
maintainability of the action if the powers of the State, which
are Executive, Legislative, and Judicial, are exercised through
particular individuals as they necessarily must be. It is true that
a criminal act committed by a Minister is no part of his official
duties. But, if any of the organs of the State claim exclusive
power to take cognizance of it, the State, as such, becomes
interested in the dispute about the legal competence or extent of
powers of one of its organs which may emerge.
XXXXXXX

XXXXXXXX

XXXXXXXXX

151. I think that the State concerned, which challenges the

validity of the action of the Central Government against one or
more of its Ministers in respect of acts involving exercise of its
governmental powers, would have sufficient interest to
maintain a suit under Article 131 because it involves claims to
what appertains to the State as a State. It may be that, if the
effect upon the rights or interests of a State, as the legal entity
which constitutes the legally set up and recognised
governmental organisation of the people residing within certain
territorial limits is too remote, indirect, or infinitesimal, upon
the facts of a particular case, we may hold that it is not entitled
to maintain a suit under Article 131. But, I do not think that we
can say that here."

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30.

In the concurring judgment of Untwalia J., while referring to the facts

of the case, the purport of Article 131 has further been explained as under:
"215. In the present case the inquiry set up by the Central
Government is not against the State or the State Government. It
is against the Chief Minister and some other Ministers who are
officers of the State. It may be open to them to take the plea in
an appropriate proceeding, such as a writ petition under Article
226 of the Constitution, that the action of the Central
Government is illegal and ultra vires. Under Article 131A
(introduced by the Forty-second Amendment), the question of
vires of Section 3 of the Act may then have to be referred for
the decision for the Supreme Court by the High Court. But that
in no way entitled the State to invoke the original jurisdiction of
the Supreme Court under Article 131. The submission made by
Mr. Lal Narayan Sinha on behalf of the plaintiff State that the
legal right of the State has been invaded by the impugned
notification, is not correct. Counsel submitted that it is only the
State's right to order an inquiry under Section 3 of the Act
against its Ministers acting through its Government, that the
Central Government has no right, that it has put an impediment
in the right of the State Government to modify or issue a
subsequent notification for the purpose of enlarging or
clarifying the scope of the inquiry and that it has thus affected
the legal right of the State. We find no substance in this
argument. There may be a competition between the power of
one authority and the other, here in this case between the
Central Government and the State Government. But unless the
power exercised by one authority brings about a dispute
impinging upon the legal right of the other authority, the latter
cannot come under Article 131 and say that merely because it
was within its power to do so its legal right is affected by the
illegal exercise of the power by the other authority. The said
exercise of the power must directly or by necessary implication
affect the legal right of the other authority. We may support the
proposition by an illustration.
Suppose, the Central
Government, in pursuance of a law made by the Parliament in
respect of an entry in List II, say, Entry 8, relating to
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intoxicating liquors, make an order against a person residing in

or an officer of any State. The order will be obviously bad, as
having been issued under an invalid law made by the
Parliament. Who can challenge this order? Obviously the
person affected or aggrieved by the order. If the order does not
affect the legal right of the State or the State Government (for
the purpose of testing the argument, the two may be equated),
can the State file a suit under Article 131 merely because the
order has been made against its resident in accordance with a
law which encroached upon the exclusive legislative field of the
State? The answer, in our opinion, must be in the negative. In
the instant case if the stand on merits taken on behalf of the
State Ministers is correct, then the impugned notification is an
invasion on their legal right. They can press into service the
power of the State Government to order an inquiry and
challenge the impugned notification, but the said notification
can in no way be said to have affected or restrained the State
Government from giving effect to its notification."
31.

As is evident from the ratio laid down in the above decisions, every

dispute which may arise between the State on the one hand and the Union of
India on the other, in discharge of their respective executive powers cannot
be construed as a dispute arising between the State and the Union of India
attracting Article 131 of the Constitution. It is also clear that Article 131 of
the Constitution is attracted only when a dispute arises between or amongst
the States and the Union in the context of the constitutional relationship that
exists between them and the legal rights flowing therefrom.
32.

Coming to the case on hand, the Suit under Article 131 of the

Constitution has been filed by the applicant/GNCTD at the fag end of

proceedings in the batch of the petitions in which virtually the hearing was
concluded on 03.05.2016. However, it is now brought to our notice that the
Suit has been numbered as Original Suit No.2/2016 and summons have also
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been issued on 12.05.2016 under the Supreme Court Rules. The prayer in
the Suit may also be reproduced hereunder:
"(i) Declare by a decree of this Hon'ble Court that Art.239 is
not applicable in relation to the Plaintiff NCT of Delhi.
(ii) Declare by a decree of this Hon'ble Court that the
Defendant Union of India has no executive powers in relation to
any of the items in List-II (other than the reserved subjects), and
List-III of the Seventh Schedule of the Constitution, except to the
extent provided for by Article 73 of the Constitution, and these
executive powers are vested exclusively in the Plaintiff NCT of
Delhi.
(iii) Declare by a decree of this Honble Court that the aid and
advise of the Council of Ministers referred to in Article
239AA(4), is binding in relation to all matters covered by entries
in List II (other than reserved subjects) and List III.
(iv) Declare by a decree of this Honble Court that Exhibit A to
this plaint issued by the Defendant Union of India is
unconstitutional being in excess of authority.
(v) Declare by a decree of this Honble Court that Exhibit B to
this plaint issued by the Defendant Union of India is
unconstitutional being in excess of authority.
(vi) Declare by a decree of this Honble Court that Exhibit C to
this plaint issued by the Defendant Union of India, through the
Lieutenant Governor is unconstitutional being in excess of
authority and violative of Section 25A, Cr.P.C.
(vii) Declare by a decree of this Honble Court that Exhibit D to
this plaint issued by the Defendant Union of India, through the
Lieutenant Governor is unconstitutional being in excess of its
authority and violative of Section 24(8), Cr.P.C.
(viii) Declare by a decree of this Court that the proviso to Article
239AA(4) is limited in its applicability to cases where a
difference of opinion arises on the question whether or not a
particular matter is one whether the Lieutenant Governor has, by
or under any law, been authorised to act in his discretion.
(ix) Issue a permanent injunction by a decree of this Honble
Court restraining the Defendant Union of India from enforcing

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either directly or through its delegate the Exhibit A and Exhibit

B, to this plaint.
(x) Issue a permanent injunction by decree of this Honble
Court directing the defendant Union of India to restrain the Delhi
Police from filing appeals, and appointing advocates or counsel
to conduct criminal cases.
(xi) Any other declaration and permanent injunction as the
nature and circumstances of the case may require.
33.

The learned Senior Counsel for the applicant/GNCTD would contend

that various disputes of federal nature that exist between NCTD and Union
of India can be adjudicated only by the Supreme Court in exercise of the
Original jurisdiction under Article 131 of the Constitution. It is contended
that the questions of law that are the subject matter of the present batch of
petitions are also fundamentally of federal nature apart from involving
various issues of Constitutional importance and therefore, it is just,
necessary and proper to stay the proceedings until the Supreme Court
decides the Original Suit filed under Article 131 of the Constitution.
34.

We have already heard all the writ petitions in detail and have taken

note of the controversy involved in each writ petition. On a careful analysis

of the relief sought and the grounds of challenge in each writ petition, we are
of the view that the issues raised in none of the petitions involve a question
of federal nature or a dispute concerning the existence or extent of a legal
right of the applicant/GNCTD. As we will presently demonstrate, the only
question that requires consideration in all the writ petitions, except
W.P.(C) No.5888/2015, is whether the orders impugned therein are vitiated
by any error in exercise of the jurisdiction conferred under Article 239AA(4)
of the Constitution read with the provisions of the GNCTD Act, 1991, the

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Transaction of Business Rules, 1993 and the provisions of the respective

enactments under which the impugned orders were passed.
35.

Even the dispute involved in W.P.(C) No.5888/2015, according to us,

cannot be construed as a dispute of a federal nature. As per clause (3) of

Article 239AA, the Legislative Assembly of NCT of Delhi shall have power
to make laws for the whole or any part of NCT of Delhi except with respect
to Entries 1, 2 and 18 of the State List. As per clause (4) of Article 239AA,
the Council of Ministers with the Chief Minister at the head are conferred
with certain executive powers.

The fact that the executive power so

conferred is co-extensive to the legislative powers under clause (3) is not in

dispute.

As we could see, the only issue in controversy in W.P.(C)

No.5888/2015 is whether the Central Government is right in contending that

the matters connected to "Services" are relatable to Entry 41 of List-II and
thus the same fall outside the purview of the legislative and executive
powers of Govt. of NCT of Delhi. In our considered opinion, the said
question needs to be answered on interpretation of the legislative entries in
the light of clauses (3) and (4) of Article 239AA of the Constitution and
nothing more. The other question relating to competence of the Central
Government in directing the Anti-Corruption Branch Police Station not to
take cognizance of offences against the officials and employees of the
Central Government also does not involve any dispute of federal nature as
sought to be contended by the petitioner/applicant. As we could see, the
subject matter of the dispute in W.P.(C) No.5888/2015 is not covered by the
class of disputes which fall within Article 131 so as to oust the jurisdiction
of this Court under Article 226 of the Constitution. Similarly, the subject
matter of dispute in W.P.(Crl.) No.2099/2015 also does not involve a dispute
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of federal nature. In the said writ petition, we are merely called upon to
determine whether the Lt. Governor can appoint a Special Public Prosecutor
under Section 24(8) of Cr.P.C. for conducting prosecution on behalf of
Government of NCT of Delhi. In our considered opinion, none of the above
noticed issues are exclusively triable under Article 131 of the Constitution.
36.

Hence, we are unable to agree with the contention of the

applicant/GNCTD that the proceedings in the present batch of petitions shall

remain stayed till the Original Suit filed by the applicant under Article 131
of the Constitution is adjudicated by the Supreme Court.
37.

It is also relevant to note that the Govt. of NCT of Delhi itself is the

petitioner in both W.P.(C) No.5888/2015 and W.P.(Crl.) No.2099/2015 and

both petitions have been argued extensively. The hearing in the writ
petitions was in fact concluded even before the filing of the Suit under
Article 131 and the present applications for stay of proceedings in writ
petitions. It may also be added that in SLP (Crl.) No.282 of 2016 titled
NCT of Delhi & Others vs. Rabia @ Mamta and Others arising out of the
order dated 03.12.2015 in W.P.(Crl.) No.2349/2015 in which also this Court
had an occasion to consider the objection raised by the Govt. of NCT of
Delhi to the appointment of a Special Counsel by the Lt.Governor to
represent Delhi Police, the following order was passed by the Supreme
Court on 12.04.2016:
"We had, vide order dated 22nd February, 2016, requested the
High Court to finalize the matter with regard to the
interpretation of Article 239AA by the end of March, 2016. We
have been told that a batch of matters is being heard together
and it will take some time. Be that as it may, we would request
the High Court of Delhi to finalize the matters by end of July,
2016.
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Let the matters be listed on 16th August, 2016.

Needless to say, the parties shall complete the pleadings by the
next date of hearing of this case.
The interim order passed on the earlier occasion shall continue
till the next date of hearing."
38.

In the light of the said order, it is not open to the applicant/GNCTD

now to contend that the proceedings in the present batch of petitions shall
remain stayed. Therefore, the only conclusion that can be reached is that
these three applications are liable to be dismissed being devoid of merit and
misconceived.
On Merits:
39.

In view of the fact that the legal issue involved in each writ petition

and the so called conflict between the Cabinet form of Government in place
in Delhi and the Lieutenant Governor appointed by the President essentially
relates to the status provided for Delhi under the Constitution, we shall first
proceed to take note of the constitutional scheme with regard to
administration of Delhi.
Constitutional Scheme
40.

Article 1 of the Constitution defines India as a Union of States and

further provides that the Territory of India shall comprise (a) the Territories
of the States; (b) the Union Territories specified in the First Schedule; and
(c) such other Territories as may be acquired.
41.

Prior to the Constitution (Seventh Amendment) Act, 1956 the States

which formed the Union of India were classified into four categories and
enumerated in Parts A, B, C and D of the First Schedule of the Constitution.
The first three categories were the States that formed the Union of India
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and the fourth category was territory. To implement the scheme of States
Reorganisation Act, 1956, on 1.10.1956, the Constitution (Seventh
Amendment) Act 1956 was passed and the territorial basis of the Union Part
B and Part C States were abolished and a new category of States called the
Union Territories were brought into existence.

The three categories of

State i.e., Part A, Part B and Part C would now be one class and the
category of territory in Part D was replaced by Union Territory.
Thus, the first part of the First Schedule comprises the territories of the
States that forms the Union and the second part of the First Schedule
comprises the Union Territories. Delhi is listed as Entry 1 of the second
part of the First Schedule.
42.

The Constitution for the purpose of administration and governance of

the country provides for demarcation of powers between the Centre and the
States. Part VIII of the Constitution deals with the powers for administration
of Union Territories. According to the provisions contained in Part VIII of
the Constitution, the Union Territories will be governed by the President
acting through an Administrator, subject to the legislation by Parliament, if
any.
43.

Thus, Delhi admittedly is a Union Territory and shall be governed by

the provisions enumerated under Part VIII of the Constitution. However,

since it is the President who exercises the control over the Union Territories
for the purposes of their administration, we shall in brief refer to the
provisions of Chapter I of Part V of the Constitution that deals with the
Executive of Union.
44.

In order to ensure a responsible Government, the framers of the

Constitution adopted the best features of the Presidential and Parliamentary

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forms of the Government. Article 52 of the Constitution states that there

shall be a President of India. Though 'executive power' is nowhere defined
under the Constitution, Article 53 states that the 'executive power' of the
Union vests in the President. A perusal of the provisions of Part V of the
Constitution shows that the President enjoys vast powers to be exercised in
accordance with the provisions of the Constitution. However, it is settled
legal position that the President is a formal or constitutional head of the
Executive of the Union and the real power is vested in the Council of
Ministers on whose aid and advice the President acts in the exercise of his
functions.
45.

Part VIII of the Constitution comprising Articles 239 to 242 deals

with the Union Territories. As is apparent, the constitutional status of the

Union Territories is not the same as a State. A Union Territory shall be
administered by the President through an Administrator appointed by him
with such designation as he may specify or through the Governor of a
neighbouring State, save as otherwise provided by Parliament by law.
46.

Analysing the provisions of Article 239 of the Constitution, it has

been held by the Supreme Court that the position in law is clear that though
the Union Territories are centrally administered under the provisions of
Article 239 they do not become merged with the Central Government and
they form part of no State but are the territories of the Union. The President
who is the executive head of a Union Territory does not function as the head
of the Central Government, but under Article 239 of the Constitution the
administration of the Union Territories is left with the President of India and
he functions as the head of the Union Territory under powers specially
vested in him under Article 239. Under Article 239, the President occupies,
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in regard to the Union Territory, a position analogous to that of a Governor

in a State. Thus, the Union Territory does not entirely lose its existence as
an entity though large control is exercised by the Union of India. {Vide:
Satya Dev Bushahri v. Padam Dev; AIR 1954 SC 587, NDMC v. State of
Punjab; (1997) 7 SCC 339, Govt. of NCT, Delhi v. All India Central
Civil Accounts, JAO's Assn.; (2002) 1 SCC 344 and Chandigarh Admn.
v. Surinder Kumar; (2004) 1 SCC 530}.
47.

While describing the status of the Administrator of the Union

Territory as a delegatee of the President, it was observed by the Supreme

Court in Sushil Flour Dal & Oil Mills v. Chief Commissioner; (2000) 10
SCC 593 as under:-

48.

4. ........ Under Part VIII of the Constitution the power to

administer the Union Territories vested in the President and the
President could exercise that power directly or through an
Administrator appointed by him. An Administrator so
appointed was the medium through which the President
exercised the function of administering the Union Territories.
So far as Delhi is concerned, the legislative history shows that even as

a Part-C State under the First Schedule to the Constitution as it stood prior to
the Constitution (Seventh Amendment) Act, 1956, the territory of Delhi was
a separate and distinct entity.

This has been explained in Express

Newspapers (P) Ltd. v. Union of India; (1986) 1 SCC 133 as under:"92. ................. it is necessary to view the question from a
historical perspective since the Union Territory of Delhi, as it
now exists, has undergone many constitutional changes. Prior
to September 17, 1912, the Territory of Delhi was known as
the Imperial Delhi Estate and was included within the then
Province of Punjab. After the decision to form the capital at
Delhi was reached, proceedings for acquisition of land
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therefor were taken by the Collector of Delhi District

pursuant to the Notification No. 775 dated December 21,
1911 issued by the Lt. Governor of Punjab. When the capital
was shifted from Calcutta to Delhi, the Governor-General-inCouncil by his proclamation dated September 17, 1912 took
under his immediate authority and management the territory
of Delhi with the sanction and approbation of the Secretary of
State for India. The Delhi Laws Act, 1912 came into force
w.e.f. September 18, 1912 and provided for the administration
of the territory of Delhi by a Chief Commissioner as a
separate Province to be known as the Province of Delhi. The
Preamble to the Act reads as follows:
Whereas by Proclamation published in Notification No. 911,
dated the seventeenth day of September, 1912, the GovernorGeneral-in-Council, with the sanction and approbation of the
Secretary of State for India, has been pleased to take under his
immediate authority and management the territory mentioned
in Schedule A, which was formerly included within the
Province of the Punjab, and to provide for the administration
thereof by a Chief Commissioner as a separate Province to be
known as the Province of Delhi;
And whereas it is expedient to provide for the application of
the law in force in the said territory, and for the extension of
other enactments thereto; It is hereby enacted as follows:
Under Section 58 of the Government of India Act, 1919,
Delhi remained and was administered as a Chief
Commissioner's Province. The office of Land & Development
Officer came into being as a separate organisation under the
administrative control of the Chief Commissioner of Delhi.
Under Section 94 of the Government of India Act, 1935, it
was provided that Delhi would continue to be a Chief
Commissioner's Province. A Chief Commissioner's Province
was to be administered by the Governor-General acting to
such extent as he thought fit through a Chief Commissioner to
be appointed by him in his discretion. Section 94 of the
Government of India Act, 1935 provided as follows:
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94. Chief Commissioners' Provinces.(1) The following

shall be the Chief Commissioners' Provinces, that is to say,
the heretofore existing Chief Commissioners' Provinces of
British Baluchistan, Delhi, Ajmer-Merwara, Coorg and the
Andaman and Nicobar Islands, the area known as Panth
Piploda, and such other Chief Commissioners' Provinces as
may be created under this Act.
(2) Aden shall cease to be part of India.
(3) A Chief Commissioner's Province shall be administered
by the Governor-General acting, to such extent as he thinks
fit, through a Chief Commissioner to be appointed by him in
his discretion.
Under Section 100(4) of the Government of India Act, 1935,
the Federal Legislature was empowered to legislate in relation
to Chief Commissioners' Provinces and without limitation as
to subjects.
93. With the attainment of Dominion status on August 15,
1947 under the Indian Independence Act, 1947, the powers of
the Legislature of the Dominion were exercisable by the
Constituent Assembly under sub-section (1) of Section 8. The
Constituent Assembly was not to be subject to any limitations
whatsoever in exercising its constituent powers. Thus, the
Indian Independence Act, 1947 established the sovereign
character of the Constituent Assembly which became free
from all limitations. Sub-section (2) of Section 8 of the Act
provided that except insofar as other provision was made by
or in accordance with a law made by a Constituent Assembly
under sub-section (1), the governance of the Dominion was to
be carried out in accordance with the Government of India
Act, 1935 and the provisions of that Act, and all the orders in
Council, rules and other instruments made thereunder. On
January 5, 1950, the Constituent Assembly enacted the
Government of India (Amendment) Act, 1949 by which
Section 290-A was inserted in the Government of India Act,
1935 providing that the Governor-General may by order
direct that an acceding State or a group of such States shall be
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administered as a Chief Commissioner's Province or as part of

Governor's or Chief Commissioner's Province. These
acceding States were thus converted into centrally
administered areas and included in Part C of the First
Schedule of the Government of India Act, 1935. The
remaining States in Part C were Ajmer, Coorg and Delhi.
Under the Constitution, Delhi became a Part C State.
As already stated the States specified in Part C of the
First Schedule were to be administered by the President
under Article 239(1) acting, to such extent as he thought
fit, through a Chief Commissioner or a Lt. Governor to be
appointed by him."
(emphasis supplied)
49.

As could be seen, with the transformation of territory of Delhi from a

Chief Commissioners Province under Section 94(3) of the Government of

India Act 1935 into that of a Part C State under the Constitution and after the
Constitution Seventh Amendment into the Union Territory of Delhi, the
office of the Chief Commissioner disappeared and that of an Administrator
appointed by the President of India under Article 239(1), with such
designation which he may specify came into existence.
50.

By the Constitution (Fourteenth Amendment) Act, 1962, Article 239A

was inserted creating local legislatures or Council of Ministers or both for

certain Union Territories. Subsequently, by the Constitution (Sixty Ninth
Amendment) Act, 1991 with effect from 01.02.1992 Article 239AA was
inserted making special provisions with respect to Delhi. Articles 239, 239A
and 239AA as they stand as of today may be reproduced hereunder:"239. Administration of Union territories. - (1) Save as
otherwise provided by Parliament by law, every Union territory
shall be administered by the President acting, to such extent as he
thinks fit, through an administrator to be appointed by him with
such designation as he may specify.
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(2) Notwithstanding anything contained in Part VI, the President

may appoint the Governor of a State as the administrator of an
adjoining Union territory, and where a Governor is so appointed,
he shall exercise his functions as such administrator
independently of his Council of Ministers.
239 A. Creation of local Legislatures or Council of Ministers
or both for certain Union territories.- (1) Parliament may by
law create for the Union territory of Puducherry
(a) a body, whether elected or partly nominated and partly
elected, to function as a Legislature for the Union territory, or
(b) a Council of Ministers, or both with such constitution, powers
and functions, in each case, as may be specified in the law.
(2) Any such law as is referred to in clause (1) shall not be
deemed to be an amendment of this Constitution for the purposes
of article 368 notwithstanding that it contains any provision
which amends or has the effect of amending this Constitution.
239AA. Special provisions with respect to Delhi. - (1) As from
the date of commencement of the Constitution (Sixty-ninth
Amendment) Act, 1991, the Union territory of Delhi shall be
called the National Capital Territory of Delhi (hereafter in this
Part referred to as the National Capital Territory) and the
administrator thereof appointed under article 239 shall be
designated as the Lieutenant Governor.
(2) (a) There shall be a Legislative Assembly for the National
Capital Territory and the seats in such Assembly shall be filled by
members chosen by direct election from territorial constituencies
in the National Capital Territory.
(b) The total number of seats in the Legislative Assembly, the
number of seats reserved for Scheduled Castes, the division of the
National Capital Territory into territorial constituencies
(including the basis for such division) and all other matters
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relating to the functioning of the Legislative Assembly shall be

regulated by law made by Parliament.
(c) The provisions of articles 324 to 327 and 329 shall apply in
relation to the National Capital Territory, the Legislative
Assembly of the National Capital Territory and the members
thereof as they apply, in relation to a State, the Legislative
Assembly of a State and the members thereof respectively; and
any reference in articles 326 and 329 to appropriate Legislature
shall be deemed to be a reference to Parliament.
(3) (a) Subject to the provisions of this Constitution, the
Legislative Assembly shall have power to make laws for the
whole or any part of the National Capital Territory with
respect to any of the matters enumerated in the State List or
in the Concurrent List in so far as any such matter is
applicable to Union territories except matters with respect to
Entries 1, 2 and 18 of the State List and Entries 64, 65 and 66
of that List in so far as they relate to the said Entries 1, 2 and
18.
(b) Nothing in sub-clause (a) shall derogate from the powers of
Parliament under this Constitution to make laws with respect to
any matter for a Union territory or any part thereof.
(c) If any provision of a law made by the Legislative Assembly
with respect to any matter is repugnant to any provision of a law
made by Parliament with respect to that matter, whether passed
before or after the law made by the Legislative Assembly, or of
an earlier law, other than a law made by the Legislative
Assembly, then, in either case, the law made by Parliament, or, as
the case may be, such earlier law, shall prevail and the law made
by the Legislative Assembly shall, to the extent of the
repugnancy, be void:
Provided that if any such law made by the Legislative Assembly
has been reserved for the consideration of the President and has

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received his assent, such law shall prevail in the National Capital
Territory:
Provided further that nothing in this sub-clause shall prevent
Parliament from enacting at any time any law with respect to the
same matter including a law adding to, amending, varying or
repealing the law so made by the Legislative Assembly.
(4) There shall be a Council of Ministers consisting of not
more than ten per cent. of the total number of members in the
Legislative Assembly, with the Chief Minister at the head to
aid and advise the Lieutenant Governor in the exercise of his
functions in relation to matters with respect to which the
Legislative Assembly has power to make laws, except in so far
as he is, by or under any law, required to act in his discretion:
Provided that in the case of difference of opinion between the
Lieutenant Governor and his Ministers on any matter, the
Lieutenant Governor shall refer it to the President for
decision and act according to the decision given thereon by
the President and pending such decision it shall be competent
for the Lieutenant Governor in any case where the matter, in
his opinion, is so urgent that it is necessary for him to take
immediate action, to take such action or to give such direction
in the matter as he deems necessary.
(5) The Chief Minister shall be appointed by the President and
other Ministers shall be appointed by the President on the advice
of the Chief Minister and the Ministers shall hold office during
the pleasure of the President.
(6) The Council of Ministers shall be collectively responsible to
the Legislative Assembly.
(7) (a) Parliament may, by law, make provisions for giving effect
to, or supplementing the provisions contained in the foregoing
clauses and for all matters incidental or consequential thereto.

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(b) Any such law as is referred to in sub-clause (a) shall not be

deemed to be an amendment of this Constitution for the purposes
of article 368 notwithstanding that it contains any provision
which amends or has the effect of amending, this Constitution.
(8) The provisions of article 239B shall, so far as may be, apply
in relation to the National Capital Territory, the Lieutenant
Governor and the Legislative Assembly, as they apply in relation
to the Union territory of Puducherry, the administrator and its
Legislature, respectively; and any reference in that article to
clause (1) of article 239A shall be deemed to be a reference to
this article or article 239AB, as the case may be."
(emphasis supplied)
51.

As is evident from the title itself, Article 239AA is a special provision

with respect to Delhi which was

inserted by the Constitution

(69th Amendment) Act, 1991 with effect from 01.02.1992, in terms of which
the Union Territory of Delhi shall be called National Capital Territory of
Delhi and the administrator thereof shall be designated as the Lt. Governor.
Further, as per clause (2) of Article 239AA, there shall be a Legislative
Assembly for the National Capital Territory and the seats in such Assembly
shall be filled by members chosen by direct election from territorial
constituencies in the National Capital Territory. Clause (2) further provides
that the functioning of the Legislative Assembly shall be regulated by law
made by Parliament.
52.

Clause (3) of Article 239AA is an important provision which confers

the Legislative Assembly of National Capital Territory with the power to

make laws for the whole or any part of the National Capital Territory with
respect to any of the matters enumerated in the State List or in the
Concurrent List except matters with respect to Entries 1, 2 and 18 of the

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State List and Entries 64, 65 and 66 of that List in so far as they relate to the
said Entries 1, 2 and 18. It has also been made clear that the powers so
conferred on the Legislative Assembly of National Capital Territory to make
laws is not in derogation of the powers of Parliament under the Constitution
to make laws with respect to any matter for a Union Territory or any part
thereof. In case of any repugnancy between the law made by the Legislative
Assembly and the law made by the Parliament, the law made by the
Parliament shall prevail and the law made by the Legislative Assembly to
the extent of repugnancy shall be void except where the law made by the
Legislative Assembly has been reserved for consideration of the President
and has received his assent.
53.

Clause (4) of Article 239AA further provides that there shall be a

Council of Ministers with the Chief Minister at the head to aid and advise
the Lt. Governor in the exercise of his functions in relation to matters with
respect to which the Legislative Assembly has power to make laws except in
so far as he is required by law to act in his discretion. The proviso to Clause
(4) made it clear that in case of difference of opinion between the
Lt. Governor and his Ministers on any matter, the Lt. Governor shall refer it
to the President for decision and act according to the decision given thereon
by the President and pending such decision, Lt. Governor is competent to
take action or to give direction as he deems necessary, in case the matter is
so urgent that it is necessary for him to take immediate action.
54.

Clause (7)(a) of Article 239AA provided that the Parliament may by

law make such provisions for giving effect to, or supplementing the
provisions contained therein. In terms thereof, Government of NCTD Act,
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1991 has been enacted by the Parliament which has come into force on
01.02.1992. In exercise of the power conferred by Section 44 of the said
Act, the President of India made Rules which provide in detail for the
procedure for the exercise of functions under clause (4) of Article 239AA.
Status of Delhi after insertion of Article 239AA
55.

The Statement of Objects and Reasons appended to the Constitution

(74th Amendment) Bill, 1991 which was enacted as Constitution

(69th Amendment) Act, 1991 reflects the purpose for which Article 239AA
has been inserted and the same reads as under:"Statement of Objects and Reasons
The question of re-organisation of the Administrative set-up
in the Union territory of Delhi has been under the
consideration of the Government for some time. The
Government of India appointed on 24-12-1987 a Committee
to go into the various issues connected with the administration
of Delhi and to recommend measures inter alia for the
streamlining of the administrative set-up. The Committee
went into the matter in great detail and considered the
issues after holding discussions with various individuals,
associations, political parties and other experts and taking into
account the arrangements in the national Capitals of other
countries with a federal set-up and also the debates in the
Constituent Assembly as also the reports by earlier
Committees and Commissions. After such detailed inquiry and
examination, it recommended that Delhi should continue to be
a Union territory and provided with a Legislative Assembly
and a Council of Ministers responsible to such Assembly with
appropriate powers to deal with matters of concern to the
common man. The Committee also recommended that with
a view to ensure stability and permanence the arrangements
should be incorporated in the Constitution to give the National
Capital a special status among the Union territories.
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2. The Bill seeks to give effect to the above proposals."

56.

In NDMC v. State of Punjab; (1997) 7 SCC 339, a Constitution

Bench of nine Judges while setting out the constitutional history of Union
Territories made it clear that Delhi is a Union Territory. In the minority
judgment authored by the then Chief Justice A.M. Ahmadi, on behalf of
himself and three other Judges, it was explained:
"Constitutional history of the areas that are now called Union
Territories"
8. In the pre-constitutional era, these territories were called Chief
Commissioner's Provinces. The Government of India Act of 1919
contained specific provisions for the governance of these areas.
Under the scheme of the Government of India Act, 1935
(hereinafter referred to as the 1935 Act), the Federation of
India comprised: (a) the Provinces called Governor's Provinces;
(b) the Indian States which had acceded to or were expected to
accede to the Federation; and (c) the Chief Commissioner's
Provinces. Part IV of the 1935 Act dealt with the Chief
Commissioner's Provinces and Section 94 listed them as: (i)
British Baluchistan, (ii) Delhi, (iii) Ajmer-Marwara, (iv) Coorg,
(v) Andaman and Nicobar Islands, and (vi) the area known as
Panth Piploda: and provided that these areas were to be
administered by the Governor General, acting through a Chief
Commissioner.
9. On 31-7-1947, during the incipient stages of the framing of the
Constitution, a Committee under the Chairmanship of Dr B.
Pattabhi Sitaramayya was established to study and report on the
constitutional changes required in the administrative structure
existing in the Chief Commissioner's provinces to give to the
people of these provinces a due place in the democratic
governance of free India. After the recommendations of this
Committee were sanctioned by the Drafting Committee, they
were placed before the Constituent Assembly for its
consideration.

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10. The Constituent Assembly considered all aspects of the issue

with a view to providing an appropriate administration for what
were called Part C States, which included three former Chief
Commissioner's Provinces Delhi, Ajmer and Coorg and
some erstwhile Indian States which were retained as Centrallyadministered areas after their merger with India; the latter group
consisted of the following areas: Himachal Pradesh, Bhopal,
Bilaspur, Cooch-Behar, Kutch, Tripura, Manipur and Vindhya
Pradesh. It was decided that the decision whether these territories
should have legislatures and Councils of Ministers ought to be
left to Parliament and, for this purpose, an enabling provision
should be incorporated within the Constitution. It was also
provided that these Part C States would be administered by the
President, acting to such extent as he thought fit, through a Chief
Commissioner or a Lieutenant Governor to be appointed by him,
or through the Governor of a neighbouring State, subject to
certain procedural requirements. Accordingly, Articles 239 and
240 were inserted in the final draft of the Constitution.
11. Under the Constitution of India, as initially enacted, the States
were divided into Part A States, Part B States, Part C States and
the territories in Part D. The First Schedule to the Constitution
provided details of the States falling within each of these
categories. The Part C States comprised: (i) Ajmer; (ii) Bhopal;
(iii) Bilaspur; (iv) Cooch-Behar; (v) Coorg; (vi) Delhi; (vii)
Himachal Pradesh; (viii) Manipur; and (ix) Tripura. The only
territory under Part D was Andaman and Nicobar. Part VIII of the
Constitution, comprising Articles 239-242, dealt with Part C
States. Article 239 provided that Part C States were to be
administered by the President acting through a Chief
Commissioner or a Lieutenant Governor. Article 240 provided
that Parliament could, by law, create a local legislature or a
Council of Ministers or both for a Part C State and such a law
would not be construed as a law amending the Constitution.
Article 241 allowed Parliament to constitute High Courts for the
States in Part C States. Article 242 was a special provision for
Coorg. Article 243, which also constituted Part IX of the
Constitution, stated that territories in Part D would be
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administered by the President through a Chief Commissioner or

other authority to be appointed by him.
12. In exercise of its powers under Article 240 (as it then stood),
Parliament enacted the Government of Part C States Act, 1951
whereunder provisions were made in certain Part C States for a
Council of Ministers to aid and advise the Chief Commissioner
and also for a legislature comprising elected representatives.
Section 22 of this legislation made it clear that the legislative
powers of such Part C States would be without prejudice to the
plenary powers of Parliament to legislate upon any subject.
13. The States Reorganisation Commission which was set up in
December 1953, while studying the working of the units of the
Union, took up the functioning of the Part C States for
examination as an independent topic. In its Report, submitted in
1955, the Commission expressed the view that Part C States were
neither financially viable nor functionally efficient, and
recommended that each of them should either be amalgamated
with the neighbouring States or made a Centrally-administered
territory.
14. Substantial changes were made by the Constitution (Seventh
Amendment) Act, 1956 (hereinafter called the Seventh
Amendment Act), which incorporated the recommendations of
the States Reorganisation Commission and was to have effect in
concert with the States Reorganisation Act, 1956. The four
categories of States that existed prior to these Acts were reduced
to two categories. The first of these categories comprised one
class, called States, and there were 14 such States. The
second category comprised the areas which had earlier been
included in Part C and Part D States; these areas were called
Union Territories and were six in number. Some additions and
deletions were made to the existing lists. While Ajmer, Bhopal,
Coorg, Bilaspur and Cooch-Behar became parts of other States,
the Laccadive, Minicoy and Amindivi Islands became a Union
Territory. The six Union Territories, therefore, were: (1) Delhi;
(2) Himachal Pradesh; (3) Manipur; (4) Tripura; (5) Andaman

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and Nicobar Islands; (6) the Laccadive, Minicoy and Amindivi

Islands.
15. The Seventh Amendment Act also replaced Articles 239 and
240 by new provisions; the new Article 240 allowed the President
to make regulations for certain Union Territories and this
provision continues to this day. It also repealed Articles 242 and
243 of the Constitution.
16. Subsequently, Dadra and Nagar Haveli became a Union
Territory by the Constitution (Tenth Amendment) Act, 1961;
Goa, Daman and Diu and Pondicherry became Union Territories
by the Constitution (Twelfth Amendment) Act, 1962; Chandigarh
became a Union Territory by the Punjab (Reorganisation) Act,
1966.
17. The Constitution (Fourteenth Amendment) Act, 1962
replaced the old Article 240 as Article 239-A, enabling
Parliament to create a legislature and/or a Council of Ministers
for Himachal Pradesh, Manipur, Tripura, Goa, Daman and Diu
and Pondicherry. Thereafter, by the Government of Union
Territories Act, 1963, Parliament did create Legislative
Assemblies, comprising three nominated persons, for these
territories.
18. Himachal Pradesh ceased to be a Union Territory by virtue of
the State of Himachal Pradesh Act, 1970. Manipur and Tripura
became States by virtue of the North-Eastern Areas
(Reorganisation) Act, 1971. Arunachal Pradesh, Mizoram and
Goa, Daman and Diu ceased to be Union Territories by virtue of
the State of Arunachal Act, 1986, the State of Mizoram Act, 1986
and the Goa, Daman and Diu (Reorganisation) Act, 1987
respectively. The Laccadive, Minicoy and Amindivi Islands
(Alteration of Names) Act, 1973 changed the name of these
Islands to Lakshadweep but it continued to remain a Union
Territory.
19. The present list of Union Territories is as follows: (i)
Delhi; (ii) Andaman and Nicobar; (iii) Lakshadweep; (iv)
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Dadra and Nagar Haveli; (v) Daman and Diu; (vi)

Pondicherry; and (vii) Chandigarh. However, it is to be noted
that all the Union Territories do not have the same status. By
the Constitution (Sixty-Ninth Amendment) Act, 1991, Articles
239-AA and 239-AB, which are special provisions in relation
to Delhi, were added. They provide that Delhi, which is to be
called the National Capital Territory of Delhi, is to have a
Legislative Assembly which will be competent to enact laws
for matters falling in Lists II and III barring a few specific
entries. As the position stands at the present moment, the
Union Territories can be divided into three categories:
(i) Union Territories without legislatures comprising
Andaman and Nicobar, Lakshadweep, Dadra and Nagar
Haveli, Daman and Diu and Chandigarh.
(ii) Union Territories for which legislatures have been
established by Acts of Parliament under Article 239-A
Pondicherry is the sole occupant of this category.
(iii) Union Territories which have legislatures created by the
Constitution (Articles 239-AA and 239-AB) The National
Capital Territory of Delhi is the sole occupant of this
category."
xxx

xxx

xxx

87. It has been urged that when Parliament legislates for Union
Territories in exercise of powers under Article 246(4), it is a
situation similar to those enumerated above and is to be treated as
an exceptional situation, not forming part of the ordinary
constitutional scheme and hence falling outside the ambit of
Union taxation. Having analysed the scheme of Part VIII of the
Constitution including the changes wrought into it, we are of the
view that despite the fact that, of late, Union Territories have
been granted greater powers, they continue to be very much
under the control and supervision of the Union Government for
their governance. Some clue as to the reasons for the recent
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amendments in Part VIII may be found in the observations of this

Court in Ramesh Birch case [1989 Supp (1) SCC 430] , which we
have extracted earlier. It is possible that since Parliament may not
have enough time at its disposal to enact entire volumes of
legislations for certain Union Territories, it may decide, at least in
respect of those Union Territories whose importance is enhanced
on account of the size of their territories and their geographical
location, that they should be given more autonomy in legislative
matters. However, these changes will not have the effect of
making such Union Territories as independent as the States. This
point is best illustrated by referring to the case of the National
Capital Territory of Delhi which is today a Union Territory and
enjoys the maximum autonomy on account of the fact that it has a
legislature created by the Constitution. However, clauses (3)(b)
and (3)(c) of Article 239-AA make it abundantly clear that the
plenary power to legislate upon matters affecting Delhi still vests
with Parliament as it retains the power to legislate
upon any matter relating to Delhi and, in the event of any
repugnancy, it is the parliamentary law which will prevail. It is,
therefore, clear that Union Territories are in fact under the
supervision of the Union Government and it cannot be contended
that their position is akin to that of the States. Having analysed
the relevant constitutional provisions as also the applicable
precedents, we are of the view that under the scheme of the
Indian Constitution, the position of the Union Territories
cannot be equated with that of the States. Though they do
have a separate identity within the constitutional framework,
this will not enable them to avail of the privileges available to
the States."
(emphasis supplied)
57.

The majority judgment authored by Justice B.P. Jeevan Reddy on

behalf of himself and four other Judges, has also reiterated that Delhi
remains a Union Territory.

The relevant paragraphs from the majority

judgment in NDMC v. State of Punjab (supra) may be extracted hereunder:

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"152.

xxxx xxxx xxxx xxxx xxxx xxxx

xxxx xxxx xxxx xxxx xxxx xxxx

In the year 1991, the Constitution did provide for a legislature

for the Union Territory of Delhi [National Capital Territory of
Delhi] by the Sixty-Ninth (Amendment) Act (Article 239-AA)
but even here the legislature so created was not a full-fledged
legislature nor did it have the effect of assuming that it could
lift the National Capital Territory of Delhi from Union
Territory category to the category of States within the meaning
of Chapter I of Part XI of the Constitution. All this necessarily
means that so far as the Union Territories are concerned,
there is no such thing as List I, List II or List III. The only
legislative body is Parliament or a legislative body
created by it. Parliament can make any law in respect of the
said territories subject, of course, to constitutional
limitations other than those specified in Chapter I of Part
XI of the Constitution. Above all, the Union Territories are
not States as contemplated by Chapter I of Part XI; they are
the territories of the Union falling outside the territories of the
States.
xxxx xxxx xxxx xxxx xxxx xxxx
xxxx xxxx xxxx xxxx xxxx xxxx
155. In this connection, it is necessary to remember that all the
Union Territories are not situated alike. There are certain Union
Territories (i.e., Andaman and Nicobar Islands and Chandigarh)
for which there can be no legislature at all as on today. There
is a second category of Union Territories covered by Article
239-A (which applied to Himachal Pradesh, Manipur, Tripura,
Goa, Daman and Diu and Pondicherry now, of course, only
Pondicherry survives in this category, the rest having acquired
Statehood) which have legislatures by courtesy of Parliament.
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Parliament can, by law, provide for constitution of legislatures

for these States and confer upon these legislatures such powers,
as it may think appropriate. Parliament had created legislatures
for these Union Territories under the the Government of Union
Territories Act, 1963, empowering them to make laws with
respect to matters in List II and List III, but subject to its
overriding power. The third category is Delhi. It had no
legislature with effect from 1-11-1956 until one has been
created under and by virtue of the Constitution Sixty-Ninth
(Amendment) Act, 1991 which introduced Article 239-AA. We
have already dealt with the special features of Article 239-AA
and need not repeat it. Indeed, a reference to Article 239-B
read with clause (8) of Article 239-AA shows how the Union
Territory of Delhi is in a class by itself but is certainly not a
State within the meaning of Article 246 or Part VI of the
Constitution. In sum, it is also a territory governed by
clause (4) of Article 246. As pointed out by the learned
Attorney General, various Union Territories are in different
stages of evolution. Some have already acquired Statehood and
some may be on the way to it. The fact, however, remains that
those surviving as Union Territories are governed by Article
246(4) notwithstanding the differences in their respective setups and Delhi, now called the National Capital Territory of
Delhi, is yet a Union Territory."
(emphasis supplied)
58.

As is evident from the legal position noticed above, though a specific

constitutional

provision

has

been

inserted

by

the

Constitution

(69th Amendment) Act, 1991 to deal with the administration of the National
Capital Territory of Delhi, it continues to be a Union Territory and does not
acquire the status of a State.

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59.

To supplement the provisions of Article 239AA and in terms of

Clause (7)(a) thereof, the Parliament enacted Government of National

Capital Territory of Delhi Act, 1991 (GNCTD Act) which has come into
force with effect from 01.02.1992. Part IV of the said Act contains certain
provisions relating to Lt.Governor and Ministers which included matters in
which Lt.Governor may act in his discretion (Section 41), conduct of
business for which the President of India shall make rules for the allocation
of business to the Ministers, orders and other instruments made and executed
in the name of Lt.Governor (Section 44) and duties of Chief Minister
regarding furnishing of information to the Lieutenant Governor (Section 45).
60.

Sections 41, 44 and 45 of GNCTD Act which are relevant for the

purpose of the present case, may be reproduced hereunder for ready

reference:
"Section 41. Matters in which Lieutenant Governor to act in
his discretion.- (1) The Lieutenant Governor shall act in his
discretion in a matter(i)

which falls outside the purview of the powers

conferred on the Legislative Assembly but in respect
of which powers or functions are entrusted or
delegated to him by the President; or

(ii)

in which he is required by or under any law to act in

his discretion or to exercise any judicial or quasijudicial functions.

(2) If any question arises as to whether any matter is or is not a

matter as respects which the Lieutenant Governor is by or under
any law required to act in his discretion, the decision of the
Lieutenant Governor thereon shall be final.
(3) If any question arises as to whether any matter is or is not a
matter as respects which the Lieutenant Governor is required by
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any law to exercise any judicial or quasi-judicial functions, the

decision of the Lieutenant Governor thereon shall be final.
Section 44. Conduct of business. - (1) the President shall make
rules (a)

for the allocation of business to the Ministers in so far as it

is business with respect to which the Lieutenant
Governor is required to act on the aid and advice of his
Council of Ministers; and

(b)

for the more convenient transaction of business with

the Ministers, including the procedure to be adopted in the
case of a difference of opinion between the Lieutenant
Governor and the Council of Ministers or a Minister.

(2) Save as otherwise provided in this Act, all executive action

of the Lieutenant Governor whether taken on the advice of his
Ministers or otherwise shall be expressed to be taken in the name
of the Lieutenant Governor.
(3) Orders and other instruments made and executed in the
name of the Lieutenant Governor shall be authenticated in such
manner as may be specified in rules to be made by the Lieutenant
Governor and the validity of an order or instrument which is so
authenticated shall not be called in question on the ground that it
is not an order or instrument made or executed by the Lieutenant
Governor.
Section 45. Duties of Chief Minister as respect the
furnishing of information to the Lieutenant Governor, etc. - It
shall be the duty of the Chief Minister (a)

to communicate to the Lieutenant Governor all decisions

of the Council of Ministers relating to the administration of
the affairs of the Capital and proposals for legislation;

(b)

to furnish such information relating to the administration

of the affairs of the Capital and proposals for legislation as
Lieutenant Governor may call for; and

(c)

If the Lieutenant Governor so requires, to submit for the

consideration of the Council of Ministers any matter on

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which a decision has been taken by a Minister but which

has not been considered by the Council."
61.

In exercise of the powers conferred by Section 44 of the GNCTD Act,

the President of India made rules including (i) Transaction of Business of the
Government of NCT of Delhi Rules, 1993 (for short 'Transaction of
Business Rules') and (ii) Government of NCT of Delhi (Allocation of
Business) Rules, 1993 (for short 'Allocation of Business Rules').
62.

We may also refer to the relevant Transaction of Business Rules,

1993:
Chapter III
Disposal of Business allocated among Ministers
xxxx

xxxx

xxxx

xxxx

xxxx

xxxx

xxxx

xxxx

Rule 10. (1) While directing that a proposal shall be circulated,

the Chief Minister may also direct, if the matter be of urgent
nature, that the Ministers shall communicate their opinion to the
Secretary to the Council by a particular date, which shall be
specified in the memorandum referred to in rule 9.
(2) If any Minister fails to communicate his opinion to the
Secretary to the Council by the date so specified in the
memorandum, it shall be assumed that he has accepted the
recommendations contained therein.
(3) If the Minister has accepted the recommendations contained
in the memorandum or the date by which he was required to
communicate his opinion has expired, the Secretary to the
Council shall submit the proposal to the Chief Minister.
(4) If the Chief Minister accepts the recommendations and if he
has no observation to make, he shall return the proposal with
his orders thereon to the Secretary to the Council.
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(5) On receipt of the proposal, the Secretary to the Council

shall communicate the decision to the Lieutenant Governor
and pass on the proposal to the Secretary concerned who
shall thereafter take necessary steps to issue the orders
unless a reference to the Central Government is required in
pursuance of the provisions of Chapter V.
xxxx

xxxx

xxxx

xxxx

Rule 14. (1) The decision of the Council relating to each

proposal shall be separately recorded and after approval by the
Chief Minister, or the Minister presiding , shall be placed with
the records of the proposal. After approval by the Chief
Minister or the Minister presiding , the decision of the Council
as approved, shall be forwarded by the Secretary to the Council
to the Lieutenant Governor.
(2) Where a proposal has been approved by the Council and the
approved record of the decision has been communicated to the
Lieutenant Governor, the Minister concerned shall take
necessary action to give affect to the decision.
xxxx

xxxx

xxxx

xxxx

Rule 23. The following classes of proposals or matters shall

essentially be submitted to the Lieutenant Governor through the
Chief Secretary and the Chief Minister before issuing any
orders thereon, namely:
(i) matters which affect or are likely to affect the peace and
tranquility of the capital;
(ii) matters which affect or are likely to affect the interest of any
minority community, Scheduled Castes and backward classes;
(iii) matters which affect the relations of the Government with
any State Government , the Supreme Court of India or the High
Court of Delhi;
(iv) proposals or matters required to be referred to the Central
Government under the Act or under Chapter V;
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(v) matters pertaining to the Lieutenant Governor's Secretariat

and personnel establishment and other matters relating to his
office;
(va) matters on which Lieutenant Governor is required to make
order under any law or instrument in force;
(vi) petitions for mercy from persons under sentence for death
and other important cases in which it is proposed to recommend
any revision of a judicial sentence;
(vii) matters relating to summoning, prorogation and dissolution
of the Legislative Assembly, removal of disqualification of
voters at elections to the Legislative Assembly, Local Self
Government Institutions and other matters connected with
those; and
(viii) any other proposals or matters of administrative
importance which the Chief Minister may consider necessary.
xxxx

xxxx

xxxx

xxxx

Chapter IV
Disposal of Business relating to Lieutenant Governor's
executive functions
Rule 45. The Lieutenant Governor, may by standing orders in
writing, regulate the transaction and disposal of the business
relating to his executive functions:
Provided that the standing orders shall be consistent with the
provisions of this Chapter, Chapter V and the instructions
issued by the Central Government for time to time.
Provided further that the Lieutenant Governor shall in respect of
matters connected with 'public order', 'police' and 'land' exercise
his executive functions to the extent delegated to him by the
President in consultation with the Chief Minister, if it is so
provided under any order issued by the President under article
239 of the Constitution.
Provided further that 'standing orders' shall not be inconsistent
with the rules concerning transaction of business.
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Rule 46.(1) With respect to persons serving in connection with

the administration of the National Capital Territory, the
Lieutenant Governor shall, exercise such powers and perform
such functions as may be entrusted to him under the provisions
of the rules and orders regulating the conditions of service of
such persons or by any other order of the President in
consultation with the Chief Minister, if it is so provided under
any order issued by the President under article 239 of the
Constitution.
xxxx

xxxx

xxxx

xxxx

CHAPTER-V
Referring to the Central Government
Rule 48.

(Omitted)

Rule 49.
In case of difference of opinion between the
Lieutenant Governor and a Minister in regard to any
matter, the Lieutenant Governor shall endeavour by
discussion on the matter to settle any point on which such
difference of opinion has arisen. Should the difference of
opinion persist, the Lieutenant Governor may direct that
the matter be referred to the Council.
Rule 50.
In case of difference of opinion between the
Lieutenant Governor and the Council with regard to any
matter, the Lieutenant Governor shall refer it to the Central
Government for the decision of the President and shall act
according to the decision of the President.
Rule 51. Where a case is referred to the Central
Government in pursuance of rule 50, it shall be competent
for the Lieutenant Governor to direct that action shall be
suspended pending the decision of the President on such
case or in any case where the matter, in his opinion, is such
that it is necessary that immediate action should be taken to
give such direction or take such action in the matter as he
deems necessary.

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Rule 52. Where a direction has been given by the Lieutenant

Governor in pursuance of rule 51, the Minister concerned
shall take action to give effect to such direction.
xxxx

xxxx

xxxx

xxxx

Rule 56. When a matter has been referred by the Lieutenant

Governor to the Central Government under these rules,
further action thereon shall not be taken except in
accordance with the decision of the Central Government."
(emphasis supplied)
63.

On a conjoint reading of Article 239AA and the above noticed

provisions of the Government of NCT of Delhi Act, 1991 and the Rules
made thereunder, it becomes manifest that Delhi continues to be a Union
Territory. By virtue of Article 239AA, Delhi has been provided with a
Legislative Assembly and a Council of Ministers consisting of not more than
10% of the total number of members in the Legislative Assembly with the
Chief Minister at the head.

While the Legislative Assembly has been

empowered to make laws for the whole or any part of the National Capital
Territory with respect to certain matters as provided in Clause (3) of
Article 239AA, Clause (4) of Article 239AA enabled the Council of
Ministers with the Chief Minister at the head to take part in executive
functions by tendering aid and advice to the Lt. Governor in the exercise of
his functions in relation to matters with respect to which the Legislative
Assembly has power to make laws, except insofar as he is, by or under any
law, required to act in his discretion. Matters in which the Lt. Governor may
act in his discretion have been enumerated in Section 41 of GNCTD Act,
1991 and the procedure to be adopted for transaction of business with the
Ministers and in case of difference of opinion between Lt. Governor and
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Council of Ministers has been provided in the Rules made under Section 44
of the said Act.
64.

That being broadly the Constitutional scheme with regard to

administration of Delhi, we shall now notice the respective claims of the

GNCTD and the Union of India.
Case of Govt. of NCT of Delhi:
65.

The Govt. of NCT of Delhi claims that by virtue of Article 239AA

constituting a Legislative Assembly for NCTD and conferring upon it

exclusive legislative competence in respect of subjects mentioned in clause
(3), Delhi has been given special status. It is claimed that consequent to the
said Constitutional conferment of legislative power, the Lt. Governor is
bound to act only on the aid and advice tendered to him by the Council of
Ministers of the GNCTD with regard to those subjects in respect of which
exclusive legislative competence is conferred on the Legislative Assembly
of NCTD.
66.

The contentions of Sh.Dayan Krishnan, the learned Senior Counsel

who appeared for GNCTD in W.P.(C) No.5888/2015 regarding the status of

Govt. of NCTD under the Constitutional scheme may be summarized as
under:
(i) Consequent to the exclusive legislative competence conferred upon
the Legislative Assembly of the Government of NCT of Delhi by
clause (3) of Article 239AA in respect of all subjects other than those
specifically excluded therein, the Lt. Governor is bound to act only on
the aid and advise of the Council of Ministers in the exercise of his

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functions in relation to those matters with respect to which the

Legislative Assembly has power to make laws.
(ii)

In terms of Section 41 of the GNCTD Act, 1991 and Rule 45

Proviso (2) of the Transaction of Business Rules even in respect of

Entries 1, 2 and 18 of the State List, to the extent the Lt. Governor is
authorized by Presidential delegation, the Lt. Governor is required to
consult the Chief Minister except in

those cases where for reasons to

be recorded in writing he does not consider it expedient to do so.

(iii)

The Lt.Governor is bound by the "aid and advise" tendered by

the Council of Ministers as interpreted by the Constitution Bench of

the Supreme Court in Samsher Singh v. State of Punjab; (1974) 2
SCC 831 which has been reiterated and applied in Rajendra Singh
Verma v. Lt. Governor; (2011) 10 SCC 1 .
(iv)

The two Division Benches of this Court in Om Prakash Pahwa

v. State of Delhi; (1998) 46 DRJ 719 and United RWAS Joint

Action v. Union of India, W.P. No.895/2011 and batch, judgment
dated 30.10.2015 have interpreted Article 239AA(3) read with Article
239AA(4) to hold that Lt. Governor is bound to act on the aid and
advise of the Council of Ministers in matters in which the Legislative
Assembly of GNCTD has the power to legislate.

The said two

judgments of the Coordinate Benches cannot be ignored or

distinguished on any ground whatsoever, particularly, in view of the
fact that one of us (Chief Justice) is a member to the Division Bench
which rendered the judgment in United RWAS Joint Action v. Union
of India. It is also contended that in case this Bench is inclined to take
a different view, then it is necessary to refer the matter to a Larger
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Bench in view of the law laid down in Mahadeolal Kanodia v.

Administrator General of West Bengal; (1960) 3 SCR 578; State of
Tripura v. Tripura Bar Association and Others; (1998) 5 SCC 637;
Dr. Vijay Laxmi Sadho v. Jagdish; (2001) 2 SCC 247; Official
Liquidator v. Dayan and Others; (2008) 10 SCC 1; U.P. Power
Corpn. Ltd. v. Rajesh Kumar; (2012) 7 SCC 1; Sundarjas Kanyalal
Bhatija v. Collector; (1989) 3 SCC 396 and P. Suseela v. University
Grants Commission and Others; (2015) 8 SCC 129.
(v)

The Lt.Governor occupies a hybrid position, that is to say, in

matters where the legislative competence vests with the Legislative

Assembly of Delhi, he would act on the aid and advise of the Cabinet
and in subjects where the exclusive power is reserved to him as a
delegate of the President, the same would be exercised by him in
consultation with the Chief Minister.
(vi)

Article 239AA constituted a full-fledged Legislature for Delhi

which is different from the body constituted by Parliament under

Article 239A to function as a Legislature for a Union Territory.
Placing reliance upon Shiv Kirpal Singh v. V.V. Giri; (1970) 2 SCC
567, it is contended that there is a distinction between a body
constituted by the Parliament and the Legislature created by the
Constitution.
(vii) Placing reliance upon U.N.R. Rao v. Indira Gandhi; (1971) 2
SCC 63, Manoj Narula v. Union of India; (2014) 9 SCC 1, S.R.
Chaudhuri v. State of Punjab; (2001) 7 SCC 126 and B.P. Singhal v.
Union of India; (2010) 6 SCC 331, it is contended that under
Article 239AA a Cabinet form of Government has been put in place
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for Delhi wherein the Council of Ministers along with the

Chief Minister are collectively responsible to the people of Delhi and
consequently the Lt. Governor is bound by the aid and advise of the
Council of Ministers headed by the Chief Minister.
(viii) The proviso to Article 239AA(4) operates only in case of
conflict of opinion between Council of Ministers and the Lt. Governor
in the event of inconsistency between law made by Parliament and the
law made by Delhi Legislative Assembly or in the event of
Lt. Governor exercising power on reserved subjects or in situations
requiring him to consult the Chief Minister/Council of Ministers as
provided under Rule 45 of the Transaction of Business Rules.
(ix)

As per Section 41 of GNCTD Act, 1991, the discretion of the

Lt.Governor extends only to matters which fall outside the legislative

competence of the Legislative Assembly of Delhi or in respect of
matters of which powers are entrusted or delegated to him by the
President or where he is required by law to act in his discretion or to
exercise any judicial or quasi-judicial functions and therefore the
Lt. Governor cannot exercise discretionary powers in any other
matter.
(x)

Section 45 of GNCTD Act being analogous to Article 167 of

the Constitution, the obligation of the Chief Minister to communicate

the Lt. Governor is limited to the final decision taken.
(xi)

In terms of Section 44(3) of the GNCTD Act and the Rules for

authentication as laid down by the Lt. Governor, it is always open to

GNCTD to issue an order or instrument in the name of the
Lt. Governor without his approval. For the said purpose, reliance has
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been placed upon A. Sanjeevi Naidu v. State of Madras; (1970) 1

SCC 443.
(xii) The power to refer a matter to the President is available to the
Lt. Governor only in respect of reserved subjects as provided under
Rules 49 and 50 of the Transaction of Business Rules, 1993.
67.

It is contended by Ms.Indira Jaising, the learned Senior Counsel who

appeared for GNCTD in W.P.(C) Nos.7934/2015 and 8867/2015 as under:

Article 239 of the Constitution is not applicable to NCT of
Delhi since Article 239AA does not incorporate by reference Article
239. Article 239AA is not only a special provision that confers on
Delhi the status of National Capital Territory but also is a self
contained code. Hence, the powers of the Lieutenant Governor under
Article 239AA are different from the powers of the Administrator
under Article 239. Further, the powers of Lieutenant Governor are
circumscribed by Article 239AA of the Constitution, GNCTD Act,
1991, Transaction of Business Rules and Allocation of Business
Rules, 1993.

68.

The contentions of Sh.P.P. Rao, the learned Senior Counsel who

appeared for GNCTD in W.P.(Crl.) No.2099/2015 are as under:

(i)

The office of Lt. Governor is not comparable to the Governor of

a State. Unlike the Governor of a State who holds an independent

constitutional office, the Lt. Governor of the Government of NCTD
acts as an agent of the Central Government. In support of the said

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submission, reliance has been placed on Hargovind Pant v.

Dr. Raghukul Tilak; (1979) 3 SCC 464.
(ii)

As held in P.V. Narsimha Rao v. State; (1998) 4 SCC 626 and

Ravi Yashwant Bhoir v. District Collector, Raigad; (2012) 4 SCC

407, Parliamentary democracy is a part of the basic structure of the
Constitution and the Government is responsible to the people through
the elected representatives.
(iii)

With respect to matters which are within the competence of the

Legislative Assembly of Delhi, the Lt. Governor has to act on the aid
and advice of the Council of Ministers and even with respect to
matters which are required to be referred to the Lt. Governor by the
Rules of Business, the Lt. Governor does not have any veto power.
(iv)

With regard to the proviso to Article 239AA(4), it is sought to

be contended that only differences which could not be settled by

discussion can be referred to the President as provided under Rule 49
of the Transaction of Business Rules.
(v)

The power conferred by the proviso to Article 239AA(4) shall

be exercised in accordance with the procedure prescribed by Rules 49

to 51 of the Transaction of Business Rules or not at all. In this regard,
reliance has been placed upon State of U.P. v. Singhara Singh &
Ors.; (1964) 4 SCR 485.
69.

The learned Senior Counsels appearing for GNCTD in other writ

petitions have also made submissions on similar lines with regard to the
Constitutional scheme regarding the administration of National Capital
Territory of Delhi.
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Case of the Union of India:

70.

Per contra, it is contended by Sh.Sanjay Jain, the learned ASG that the

Central Government acting through the Lt. Governor has exclusive

supremacy over the NCT of Delhi. His submissions are:
(i)

Even after the insertion of Article 239AA in the Constitution,

Delhi remains under the overall control of the Central Government

and continues to be a Union Territory. Thus, Article 239 continues to
be applicable to it and the Lt. Governor continues to act as
Administrator. For this, the learned ASG relied upon NDMC v. State
of Punjab; (1997) 7 SCC 339. Reliance has also been placed upon
recommendations in the Report dated 14.12.1989 of the Balakrishnan
Committee which was constituted for "Reorganization of the Delhi
Set-Up" and which formed the basis of the 69th Amendment to the
Constitution as well as enactment of Government of NCT of Delhi
Act, 1991, to highlight the intention and object of introduction of
Article 239AA of the Constitution.
(ii)

The learned ASG relied upon the judgments of the Supreme

Court in R.S.Nayak v. A.R.Antulay; (1984) 2 SCC 183, Shrimant

Shamrao Suryavanshi & Anr. v. Prahlad Bhairoba Suryavanshi by
LRs & Ors.; (2002) 3 SCC 676 and T.M.A. PAI Foundation v. State
of Karnataka; (2002) 8 SCC 481, to contend that the report of the
Balakrishnan Committee on the basis of which Article 239AA has
been inserted in the Constitution can be looked into for the purpose of
seeing the real intention of Parliament in enacting the said provision.

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(iii)

Clause (3) of Article 239AA of the Constitution makes it clear

that the Parliament will have legislative supremacy with respect to any
laws made in Delhi. As a natural corollary, the Central Government
will also have executive supremacy over the NCT of Delhi.
(iv)

The discretion conferred on the Lt. Governor under the proviso

to Article 239AA(4) of the Constitution to refer the matter to the

President in case of a difference of opinion between the Chief
Minister and Lt. Governor is not available under Articles 74 and 163
of the Constitution dealing with the powers of the President and the
Governor.
(v)

The scope of "aid and advise" in Article 239AA(4) of the

Constitution is not comparable to the scope of "aid and advise"

received by the Governor of a State under Article 162 of the
Constitution as explained in

Devji Vallabhbhai Tandel v.

Administrator Goa, Daman & Diu; (1982) 2 SCC 222.

(vi)

The judgments of the Coordinate Benches of this Court in

O.P. Pahwa (supra) and United RWAs Joint Action (supra) are not
applicable and that they are per incuriam since the law laid down by
the Supreme Court in Devji Vallabhbhai Tandel (supra) was not
brought to the notice of this Court.
(vii) The decision in Samsher Singh (supra) in which the Supreme
Court was dealing with "aid and advise" with reference to Articles 74,
162 and 163 of the Constitution is not applicable.

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Submissions on behalf of Intervener/Reliance Industries Ltd.

71.

Dr. Abhishek Manu Singhvi, the learned Senior Counsel appearing on

behalf of the intervener argued:

(a)

As provided under Article 309 of the Constitution as well as

Entry 70 of List I and Entry 41 of List II, there are only two
services, one of the Union and the other of each State.
The appropriate legislature may regulate the recruitment and
conditions of service of person so appointed to the public
services and posts in connection with the affairs of the Union or
any of the State.

(b)

Therefore, the services under the NCT of Delhi are necessarily

the services of the Union and they are expressly covered only
by Entry 70 of List I.

(c)

The Legislative Assembly of NCT of Delhi has no legislative

competence to legislate in respect of any subjects covered under
Entries 1, 2 and 18 of State List and Entry 70 of the Union List.
As a corollary, the GNCTD has no executive authority in
respect of these enumerated subjects.

(d)

In view of Section 41 of the GNCTD Act, 1991, the

Lt. Governor is required to act in his discretion in respect of
these matters and not on the aid and advice of the Council of
Ministers.

72.

In the light of the rival submissions noticed above, the following

issues arise for consideration:

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A.

Whether the Lt. Governor is bound to act only by the aid and
advice of the Council of Ministers in the exercise of his
functions in relation to matters with respect to which the
Legislative Assembly of NCT of Delhi has power to make
laws?

B.

Whether it is necessary to refer the issue to a larger Bench in

the light of the judgments of the co-ordinate Benches of this
Court in O.P. Pahwa v. State of Delhi (supra), Delhi High
Court Bar Association v. Union of India (supra) and United
RWAS Joint Action v. Union of India (supra)?

Aid and Advice of the Council of Ministers - whether binding on the

Lt. Governor:
73.

The contention of Shri Dayan Krishnan, the learned Senior Counsel

on behalf of the GNCTD is that the Lt. Governor is bound by the aid and
advise of the Council of Ministers headed by the Chief Minister. It is
contended that since Delhi is being governed by a democratically elected
Government, the purport of Article 163 of the Constitution is squarely
applicable and as per the ratio laid down by the Constitution Bench in
Samsher Singh v. State of Punjab (supra), the Lt. Governor is bound by the
aid and advise of the Council of Ministers.
74.

It is also submitted that in the light of the law laid down in Rajendra

Singh Verma (supra) which was rendered after applying the ratio laid down
by the Seven Judge Bench of the Supreme Court in Samsher Singh (supra),

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the issue as to whether the Lt.Governor is bound by the aid and advice
tendered by the Council of Ministers is no longer res integra.
75.

We have carefully gone through the Constitution Bench decision of

the Supreme Court in Samsher Singh (supra) as well as the later decision in
Rajendra Singh Verma (supra).
76.

In Samsher Singh (supra), one of the appellants, Samsher Singh, was

a member of the Punjab Civil Services (Judicial Branch). His services were
terminated with immediate effect vide order of the Governor of Punjab dated
27.04.1967 under the provisions of the Punjab Civil Services (Punishment
and Appeal) Rules, 1952, on the recommendation of the High Court of
Punjab and Haryana. Since his writ petition was dismissed by the High
Court, the matter was carried to the Supreme Court contending inter alia that
the power of the Governor under Article 234 of the Constitution to appoint
or terminate the services of subordinate judges is to be exercised
individually and personally in his discretion since the power is conferred on
him eo-nominee and that the said power cannot be exercised like an
executive function on the aid and advice of the Council of Ministers under
Article 163 of the Constitution. The said contention was made on the basis
of the decision in Sardari Lal v. Union of India; (1971) 1 SCC 411. On the
other hand, the contention on behalf of the Respondents was that the
President and the Governor exercise all powers and functions conferred on
them by or under the Constitution on the aid and advice of the Council of
Ministers.
77.

Since the correctness of the decision rendered by 5 Judges Bench in

Sardari Lal v. Union of India (supra) was doubted, Samsher Singh (supra)
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was decided by a larger Bench of seven Judges.

Having analyzed the

purport of Article 74 which provides for Council of Ministers to aid and

advice President in the exercise of his functions vis-a-vis Article 163 which
provides for Council of Ministers to aid and advice Governor in the exercise
of his functions except in so far as he is by or under the Constitution
required to exercise his functions in his discretion, the larger Bench in
Samsher Singh (supra) observed:
"28. Under the Cabinet system of Government as embodied in
our Constitution, the Governor is the Constitutional or formal
Head of the State and he exercises all his powers and functions
conferred on him by or under the Constitution on the aid and
advice of his Council of Ministers save in spheres where the
Governor is required by or under the Constitution to exercise
his functions in his discretion."
(emphasis supplied)
78.

The distinction between Article 74(1) and Article 163(1) has further

been explained in Para 44:

"44. The distinction made by this Court between the executive
functions of the Union and the executive functions of the
President does not lead to any conclusion that the President is
not the constitutional head of Government. Article 74(1)
provides for the Council of Ministers to aid and advise the
President in the exercise of his functions. Article 163(1) makes
similar provision for a Council of Ministers to aid and advise
the Governor. Therefore, whether the functions exercised by
the President are functions of the Union or the functions of
the President they have equally to be exercised with the aid
and advice of the Council of Ministers, and the same is true
of the functions of the Governor except those which he has
to exercise in his discretion."
(emphasis supplied)

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79.

Thus, it was concluded in Paras 57 and 88:

"57. ..the President or the Governor acts on
the aid and advice of the Council of Ministers with the Prime
Minister at the head in the case of the Union and the Chief
Minister at the head in the case of State in all matters which
vests in the Executive whether those functions are executive or
legislative in character. Neither the President nor the
Governor is to exercise the executive functions personally.
The present appeals concern the appointment of persons other
than District Judges to the Judicial Services of the State which
is to be made by the Governor as contemplated in Article 234 of
the Constitution after consultation with the State Public Service
Commission and the High Court. Appointment or dismissal or
removal of persons belonging to the Judicial Service of the
State is not a personal function but is an executive function of
the Governor exercised in accordance with the rules in that
behalf under the Constitution."
(emphasis supplied)
"88. For the foregoing reasons we hold that the President as
well as the Governor acts on the aid and advice of the Council
of Ministers in executive action and is not required by the
Constitution to act personally without the aid and advice of the
Council of Ministers or against the aid and advice of the
Council of Ministers. Where the Governor has any discretion
the Governor acts on his own judgment. The Governor
exercises his discretion in harmony with his Council of
Ministers. The appointment as well as removal of the members
of the Subordinate Judicial Service is an executive action of the
Governor to be exercised on the aid and advice of the Council
of Ministers in accordance with the provisions of the
Constitution. Appointments and removals of persons are made
by the President and the Governor as the constitutional head of
the Executive on the aid and advice of the Council of Ministers.
That is why any action by any servant of the Union or the State
in regard to appointment or dismissal is brought against the

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Union or the State and not against the President or the

Governor."
80.

As could be seen, Samsher Singh (supra) was rendered in the context

of the executive functions of the Governor of a State. It was laid down that
being the Constitutional head of the State, the Governor exercises all his
powers and functions conferred under the Constitution on the aid and advice
of the Council of Ministers except where he is required by or under the
Constitution to exercise his functions in his discretion in which event he acts
on his own judgment. It was also held that the appointment and removal of
services of subordinate Judges of the State is not a personal function and that
the Governor under Article 234 acts as the Constitutional head of the
Executive and exercises the said functions on the aid and advice of the
Council of Ministers in accordance with the provisions under the
Constitution.
81.

The contention of Shri Dayan Krishnan, the learned Senior Counsel

appearing for GNCTD is that the ratio laid down in Samsher Singh (supra)
has been applied and reiterated in Rajendra Singh Verma (supra) while
holding that the Lt. Governor is bound by the aid and advice of the Council
of Ministers headed by the Chief Minister in the exercise of the executive
functions under Article 239AA of the Constitution.
82.

We are unable to accept the contention of Shri Dayan Krishnan.

83.

In Rajendra Singh Verma (supra), the contention of the appellant

therein was that the order of compulsory retirement passed by the

Lt.Governor without seeking aid and advice of his Council of Ministers as
required under Article 239AA(4) is ultra vires and illegal. In support of the
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said submission, the appellant relied upon Samsher Singh (supra). The
contention on behalf of the respondents was that under Article 235, it is the
High Court which has to exercise supervision and control over the
subordinate judiciary and not the State Government and therefore the
recommendations of the High Court are binding on the State
Government/Governor.

In other words, the contention was that the

Lt. Governor has to act on the recommendation of the High Court and the
impugned order of compulsory retirement cannot be held to be illegal for not
seeking aid and advice of Council of Ministers.
84.

After noticing the contents of Article 163(1) and Article 239AA(4),

the Supreme Court explained the legal position as under:

"97. A meaningful and conjoint reading of Article 163 of the
Constitution makes it clear that the Governor has to act on the
aid and advice of the Council of Ministers with the Chief
Minister at the head except insofar as he is by or under this
Constitution required to exercise his functions or any of them in
his discretion. In view of the provisions of Clause (4) of Article
239-AA of the Constitution, the Lt. Governor has to take aid
and advice of the Council of Ministers in the exercise of his
functions in relation to matters with respect to which the
Legislative Assembly has power to make laws. Article 235
provides that the control over the subordinate courts is vested in
the High Court of a State.
98. The expression "control" has been elucidated in several
reported decisions of this Court, the leading case being Samsher
Singh v. State of Punjab. The "control" vested in the High
Court is a mechanism to ensure independence of the
subordinate judiciary. Under Article 235 of the Constitution,
the control over the subordinate judiciary, vested in the High
Court, is exclusive in nature, comprehensive in extent and
effective in operation and it is to subserve a basic feature of the
Constitution i.e. independence of judiciary. .
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99. The scheme envisaged by the Constitution does not

permit the State to encroach upon the area reserved by Articles
233, 234 and the first part of Article 235 either by legislation or
rules or executive instructions. Article 235 has no concern with
the conferring of jurisdiction and powers on the Court but it
only relates to administrative and disciplinary jurisdiction over
the subordinate courts. Therefore, the conferment of power of
the prescribed authority by the State Legislature on the judicial
officers cannot be construed to mean that the power of the High
Court under Article 235 is inoperative or inchoate as the High
Court alone is the sole authority competent to initiate
disciplinary proceedings against the subordinate judicial
officers or to impose various punishments including passing of
order of compulsory retirement on verification of the service
record. The State is least competent to aid and advise the
Governor on such subjects.
100. While the High Court retains the power of disciplinary
control over the subordinate judiciary including power to
initiate disciplinary proceedings, suspend them during enquiries
and impose punishment on them, but when it comes to the
question of dismissal, removal or reduction in rank or
termination of services of judicial officers on any count
whatsoever, the High Court becomes the recommending
authority and cannot itself pass the orders. The formal order to
give effect to such a decision has to be passed by the State
Governor on the recommendations of the High Court. In
disciplinary proceedings if an action is taken by the High Court
against the judicial officer the recommendations made by the
High Court bind the Governor and he is left with no discretion
except to act according to the recommendations. The Governor,
under the scheme of Articles 233, 234 and 235 of the
Constitution cannot refuse to act in terms of the
recommendations made by the High Court on the ground that
he is not aided and advised by the Council of Ministers and this
is the true import of total control of the High Court over the
subordinate judiciary."

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85.

Finally, it was concluded in Paras 135 and 136 that the order of the

Lt.Governor compulsorily retiring the appellants therein without seeking aid

and advice of his Council of Ministers is neither ultra vires nor illegal
observing:
"135. Thus, it is fairly well settled by a catena of decisions of
this Court that in the matter of compulsory retirement of a
judicial officer the Governor cannot act on the aid and the
advice of the Council of Ministers but has to act only on the
recommendation of the High Court. Though the Lt. Governor is
a party to these appeals, he has not raised any plea that the
recommendation made by the Delhi High Court was not binding
on him and he could have acted in the matter only on the aid
and advice of his Council of Ministers. Thus the order of the Lt.
Governor compulsorily retiring the appellants without seeking
aid and advice of his Council of Ministers is neither ultra vires
nor illegal and is rightly sustained by the High Court. The
Governor could not have passed any order on the aid and advice
of the Council of Ministers in this case. The advice should be of
no other authority except that of the High Court in the matter of
judicial officers. This is the plain implication of Article 235.
136. Reliance on Article 239-AA(4) is entirely out of place so
far as the High Court is concerned, dealing with the judicial
officers. To give any other interpretation to Article 239-AA(4)
will be to defeat the supreme object underlying Article 235 of
the Constitution, specially intended for protection of the judicial
officers and necessarily independence of the subordinate
judiciary. It is absolutely clear that the Governor cannot take the
aid and advice of his Council of Ministers in the case of judicial
officers and accept its advice and act according to it. There is no
room for any outside body between the Governor and the High
Court. Therefore, this Court does not find any substance in this
contention also and the same is rejected."

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86.

The above analysis shows that it was clearly laid down in both

Samsher Singh (supra) and Rajendra Singh Verma (supra) that in terms of
Article 163 of the Constitution, the Governor of a State has to act on the aid
and advice of the Council of Ministers except in so far as he is by or under
the Constitution required to exercise his functions in his discretion. In both
the cases the impugned orders were passed in exercise of the powers
conferred on the Governor under Article 234 of the Constitution
terminating/compulsorily retiring the officers of judicial service. In Samsher
Singh (supra), the Governor had acted on the recommendation of the High
Court and with the aid and advice of the Council of Ministers. The said
order was upheld by the Supreme Court rejecting the contention of the
appellant therein that the power conferred on the Governor has to be
exercised personally but not like an executive function on the aid and advice
of the Council of Ministers under Article 163. In Rajendra Singh Verma
(supra), the Lt. Governor passed the order on the recommendation of the
High Court but without seeking aid and advice of the Council of Ministers.
The contention of the appellant therein that under Clause (4) of Article
239AA it is mandatory to seek aid and advice was not accepted and it was
held that the recommendation made by the High Court is binding on the
Governor and he cannot refuse to act on the ground that he is not aided and
advised by the Council of Ministers.
87.

In Rajendra Singh Verma (supra), it was contended by the appellant

that in Samsher Singh case it was ruled that the Governor is bound to act as
per the aid and advice tendered by the Council of Ministers and not on the

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recommendations of the High Court in the matter of termination of services

of Judicial Officers.
88.

Rejecting the contention, it was clarified as under:

"106. In view of what is categorically, clearly and authoritatively
held in para 78 of the reported decision there is no manner of
doubt that it is ruled by seven-Judge Bench of this Court
in Samsher Singh, that the Governor has to act on the
recommendation of the High Court and that is the broad basis of
Article 235.
107. The appellant Samsher Singh was appointed on 1-5-1964 as
Subordinate Judge. He was on probation. On 22-3-1967, the Chief
Secretary issued a notice to him substantially repeating the same
charges which had been communicated to him by the Registrar on
15-12-1966, and asked the appellant to show cause as to why his
services should not be terminated as he was found unsuitable for
the job. The appellant gave an answer. On 29-4-1967, the services
of the appellant were terminated. Samsher Singh, in the context of
the Rules of Business, contended that the removal of a
Subordinate Judge from service was a personal power of the
Governor and was incapable of being delegated or dealt with
under the Rules of Business. This Court held that the Governor
can allocate the business of the Government to the Ministers and
such allocation is no delegation and it is an exercise of executive
power by the Governor through the Council or officers under the
Rules of Business. Therefore, the contention of the appellant that
the order was passed by the Chief Minister without the formal
approval of the Governor was found to be untenable and it was
held that the order was of the Governor.
108. Thereafter, this Court in Samsher Singh case [(1974) 2 SCC
831 : 1974 SCC (L&S) 550 : AIR 1974 SC 2192] noted the
contents of the show-cause notice, reply given to the said notice
by the appellant, protection granted by Rule 9, etc. and held that it
was clear that the order of termination of services of Samsher
Singh was one of punishment and set it aside. In the light of the
contention raised on behalf of Samsher Singh in the context of the
Rules of Business, this Court, in para 88 of the said decision, held

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that the President and the Governor act on the aid and advice of
the Council of Ministers in executive action and the appointment
as well as removal of the members of the Subordinate Judicial
Service is an executive action of the Governor to be exercised on
the aid and advice of the Council of Ministers in accordance with
the provisions of the Constitution.
109. Thus what is observed by the Supreme Court, in para 88 of
the reported decision in Samsher Singh case, will have to be read
in the light of the submission made on behalf of the appellant
Samsher Singh and subject to clear, unambiguous and manifest
proposition of law laid down in para 78 of the reported decision.
Therefore, it is wrong to contend that in Samsher Singh case,
it is ruled by this Court that the Governor is bound to act as
per the aid and advice tendered by the Council of Ministers
and not on the recommendations of the High Court in the
matter of termination of services of the judicial officers on any
count whatsoever."
(emphasis supplied)

89.

We are, therefore, of the view that the submission of Sh.Dayan

Krishnan that in the light of Samsher Singh (supra) and Rajendra Singh
Verma (supra), it is no longer res integra that the Lt. Governor is bound by
the aid and advice tendered by the Council of Ministers is not correct.
90.

What we have found is that in Samsher Singh (supra), while drawing

a distinction between the exercise of the executive functions by the President

and the exercise of the executive functions by the Governor of a State, it was
laid down that so far as the Governor of a State is concerned, he acts on the
aid and advice of the Council of Ministers except in so far as he is by or
under the Constitution required to exercise his functions in his discretion.
Following the said dicta, it was added in Rajendra Singh Verma (supra) that
the Governor under the scheme of Articles 233, 234 and 235 of the
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Constitution is bound by the recommendations of the High Court. It was

also added that reliance on Article 239AA(4) is entirely out of place so far as
the High Court is concerned, dealing with the judicial officers.
91.

However, it is vehemently contended by Shri Dayan Krishnan, the

learned Senior Counsel appearing for GNCTD that since there is an elected
Assembly with the Council of Ministers headed by the Chief Minister in
NCT of Delhi, the status of the Lt. Governor of NCT of Delhi is similar to
that of a Governor in the matter of discharge of executive functions and
therefore, in terms of the dicta laid down in Samsher Singh (supra), the
Lt. Governor cannot act on his own with regard to those subjects in respect
of which exclusive legislative competence is conferred on the Legislative
Assembly of NCTD and he is bound to act only on the aid and advice of the
Council of Ministers headed by the Chief Minister. It is also his contention
that in respect of matters which are beyond the purview of the Legislative
Assembly, the Lt. Governor, to the extent of functions delegated by the
President, is required to consult the Chief Minister in terms of Rule 45
Proviso (2) of Transaction of Business Rules.
92.

According to us, these contentions are also of no substance for the

following reasons:
93.

A comparison of the language of Article 163(1) read with the

language of Article 239AA(4) clearly shows the difference between the

position of the Governor of a State on the one hand and the Lt. Governor of
NCTD on the other hand. Article 163(1) and Article 239AA(4) may be
reproduced hereunder for ready reference:

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"163. Council of Ministers to aid and advise Governor. - (1)

There shall be a Council of Ministers with the Chief Minister as
the head to aid and advise the Governor in the exercise of his
functions, except in so far as he is by or under this
Constitution required to exercise his functions or any of
them in his discretion.
xxx

xxx

xxx

239AA(1)

xxx

xxx

xxx

(2)

xxx

xxx

xxx

(3)

xxx

xxx

xxx

(4) There shall be a Council of Ministers consisting of

not more than ten per cent. of the total number of members in the
Legislative Assembly, with the Chief Minister at the head to aid
and advise the Lieutenant Governor in the exercise of his
functions in relation to matters with respect to which the
Legislative Assembly has power to make laws, except in so far
as he is, by or under any law, required to act in his discretion:
Provided that in the case of difference of opinion between the
Lieutenant Governor and his Ministers on any matter, the
Lieutenant Governor shall refer it to the President for decision
and act according to the decision given thereon by the President
and pending such decision it shall be competent for the
Lieutenant Governor in any case where the matter, in his opinion,
is so urgent that it is necessary for him to take immediate action,
to take such action or to give such direction in the matter as he
deems necessary."
(emphasis supplied)
94.

As is evident, both Article 163(1) and Article 239AA(4) of the

Constitution provide for the Governor/Lt. Governor acting in his discretion.

However, the discretion of the Governor of a State under Article 163(1) is
confined only to the Constitutional provisions, whereas under Article
239AA(4), the Lt. Governor may act in his discretion with regard to all the

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matters in respect of which he is required to act in his discretion "by or

under any law".
95.

It may be elaborated that Article 163(1) has to be read in conjunction

with such other Articles of the Constitution which specifically reserve the
power to the Governor to act in his discretion and those matters are
exceptions under which the Governor can act in his own discretion. In such
matters provided under the Constitution, the powers are conferred on the
Governor eo-nominee and such functions and powers are not the executive
powers of the State within the meaning of Article 154 read with Article 162
of the Constitution.
96.

The above legal position has been consistently reiterated by the

Supreme Court in various decisions.

Suffice it to refer to the recent

authoritative pronouncement of the Constitution Bench dated 13.07.2016 in

SLP(C)No.1259-1260/2016 titled Nabam Rebia and Bamang Felix v.
Deputy Speaker & Ors. in which the duties and responsibilities of the
Governor under Article 163 of the Constitution have been distinctly and
explicitly interpreted. While adjudicating upon the question as to whether
the underlying cardinal principle with reference to the discretionary power
of the Governor is to be traced from Article 163(1) or Article 163(2) of the
Constitution, it was observed by Justice Jagdish Singh Khehar, who
authored the judgment for himself, Justice Pinaki Chandra Ghosh and Justice
N.V. Ramana, in para 137:
"137. First of all, it is extremely essential to understand, the
nature of powers and the functions of the Governor, under the
provisions of the Constitution. Insofar as the instant aspect of the
matter is concerned, it is apparent that the Governor has been
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assigned functions and powers, concerning the executive and the

legislative affairs of the State. The executive functioning of the
States is provided for under Part VI Chapter II of the
Constitution, which includes Articles 153 to 167. Article 154
mandates, that the executive power of the State is vested with the
Governor, and is to be exercised by him either directly or through
officers subordinate to him in accordance with this
Constitution. Article 163 further warrants, that the Governor
would exercise his functions, on the aid and advice of the
Council of Ministers with the Chief Minister as the head. The
above edict is not applicable, in situations where the
Governor is expressly required to exercise his functions,
by or under this Constitution, in his discretion....
The question that will need determination at our hands is,
whether the underlying cardinal principle, with reference to the
discretionary power of the Governor, is to be traced from Article
163(1) or from Article 163(2). Whilst it was the contention of the
learned counsel for the appellants, that the same is expressed in
sub-article (1) of Article 163, the contention on behalf of the
respondents was, that the amplitude of the discretionary power of
the Governor is evinced and manifested in sub-article (2) of
Article 163. Undoubtedly, all executive actions of the
Government of a State are expressed in the name of the
Governor, under Article 166. That, however, does not per se add
to the functions and powers of the Governor. It is also necessary
to appreciate, that in the discharge of executive functions, the
Governor of a State has the power to grant pardons, reprieves,
respites or remissions of punishments or to suspend, remit or
commute sentences (under Article 161). The Governors power
under Article 161, is undisputedly exercised on the aid and
advice of the Chief Minister and his Council of Ministers. The
Governor has power to frame rules for the convenient transaction
of executive business of the Government, under Article 166. The
instant responsibility is also discharged, on aid and advice. All in
all, it is apparent, that the Governor is not assigned any
significant role in the executive functioning of the State. We
would also endeavour to examine the duties and responsibilities
of the Governor in the legislative functioning of a State. Details
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with reference to the same are found incorporated in Part VI

Chapter III of the Constitution, which includes Articles 168 to
212. Even though Article 168 postulates, that the legislature of a
State would comprise of the Governor, yet the Governor is not
assigned any legislative responsibility in any House(s) of the
State Legislature, irrespective of whether it is the legislative
process relating to Ordinary Bills or Money Bills. Article 158
(dealing with the conditions of the Governors office) provides,
that the Governor shall not be a member of either House of
Parliament or of a House of the Legislature of any State specified
in the First Schedule . Insofar as the legislative process is
concerned, the only function vested with the Governor is
expressed through Article 200 which inter alia provides, that a
Bill passed by the State Legislature, is to be presented to the
Governor for his assent. And its ancillary provision, namely,
Article 201 wherein a Bill passed by the State Legislature and
presented to the Governor, may be reserved by the Governor for
consideration by the President. The only exception to the nonparticipation of the Governor in legislative functions, is
postulated under Article 213 (contained in Part VI Chapter IV of
the Constitution), which apparently vests with the Governor,
some legislative power. The Governor under Article 213 can
promulgate Ordinances, during the period when the House(s) of
the State Legislature, is/are not in session. This function is
exercised by the Governor, undisputedly, on the aid and advice of
the Council of Ministers with the Chief Minister as the head. The
Governor is also required to summon the House or Houses of
State Legislature, or to prorogue or dissolve them under Article
174. We shall exclusively deal with the connotations of the
instant responsibility entrusted with the Governor, immediately
after drawing our conclusions with reference to Article 163.
Articles 178 to 187 deal with the officers of the State Legislature,
including the Speaker and the Deputy Speaker, as well as, the
secretariat of the State Legislature. The above Articles are on the
subject of appointment and removal of the Speaker and the
Deputy Speaker of the Legislative Assembly, as also, the
Chairman and Deputy Chairman of the Legislative Council, as
well as, other ancillary matters. Whilst Article 179 provides for
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vacation, resignation and removal of the Speaker (and the Deputy

Speaker) of the Legislative Assembly. Article 183 provides for
vacation, resignation and removal of the Chairman (and the
Deputy Chairman) of the Legislative Council. In neither of the
above Articles, the Governor has any assigned role. The only
responsibility allocated to the Governor under Article 208, is of
making rules as to the procedure with respect to communications
between the two Houses of State Legislature. All in all, it is
apparent, that the Governor is not assigned any significant role
even in the legislative functioning of the State."
(emphasis supplied)
97.

After extensively referring to the Constituent Assembly debates and

Reports of Justice Sarkaria Commission and Justice M.M. Punchhi

Commission on 'Centre-State relations' and 'Constitutional Governance and
Management of Centre-State Relations' respectively, it was further held:
"141. Though the debate could be endless, yet we would
consider it apposite to advert to the decisions rendered by this
Court in the Sardari Lal case {(1971) 1 SCC 411} and the
Samsher Singh case {(1974) 2 SCC 831}Insofar as the Sardari
Lal case (supra) is concerned, this Court had held therein, that
the President or the Governor, as the case may be, would pass
an order only on his personal satisfaction. In the above case,
this Court while examining the case of an employee under
Article 311(2) (more particularly, under proviso (c) thereof),
recorded its conclusions, in the manner expressed above. The
same issue was placed before a seven-Judge Bench constituted
to re-examine the position adopted in the Sardari Lal case
(supra). The position came to be reversed. This Court in the
Samsher Singh case (supra) declared, that wherever the
Constitution required the satisfaction of the President or the
Governor, for the exercise of any power or function, as for
example under Articles 123, 213, 311(2), 317, 352(1), 356 and
360, the satisfaction required by the Constitution was not the
personal satisfaction of the President or the Governor. but
is the satisfaction of the President or of the Governor in the
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constitutional sense under the Cabinet system of Government

. It is therefore clear, that even though the Governor may
be authorized to exercise some functions, under different
provisions of the Constitution, the same are required to be
exercised only on the basis of the aid and advice tendered to
him under Article 163, unless the Governor has been expressly
authorized, by or under a constitutional provision, to discharge
the concerned function, in his own discretion.
142. We are therefore of the considered view, that insofar
as the exercise of discretionary powers vested with the
Governor is concerned, the same is limited to situations,
wherein a constitutional provision expressly so provides,
that the Governor should act in his own discretion.
Additionally, a Governor can exercise his functions in his
own discretion, in situations where an interpretation of the
concerned constitutional provision, could not be construed
otherwise. We therefore hereby reject the contention
advanced on behalf of the respondents, that the Governor
has the freedom to determine when and in which situation,
he should take a decision in his own discretion, without the
aid and advice of the Chief Minister and his Council of
Ministers. We accordingly, also turn down the contention,
that whenever the Governor in the discharge of his
functions, takes a decision in his own discretion, the same
would be final and binding, and beyond the purview of
judicial review. We are of the view, that finality expressed
in Article 163(2) would apply to functions exercised by the
Governor in his own discretion, as are permissible within
the framework of Article 163(1), and additionally, in
situations where the clear intent underlying a constitutional
provision, so requires i.e., where the exercise of such power
on the aid and advice, would run contrary to the
constitutional scheme, or would be contradictory in terms.
143. We may therefore summarise our conclusions as under:
Firstly, the measure of discretionary power of the Governor,
is limited to the scope postulated therefor, under Article
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163(1). Secondly, under Article 163(1) the discretionary

power of the Governor extends to situations, wherein a
constitutional provision expressly requires the Governor
to act in his own discretion. Thirdly, the Governor can
additionally discharge functions in his own discretion, where
such intent emerges from a legitimate interpretation of the
concerned provision, and the same cannot be construed
otherwise. Fourthly, in situations where this Court has
declared, that the Governor should exercise the particular
function at his own and without any aid or advice, because
of the impermissibility of the other alternative, by reason of
conflict of interest. Fifthly, the submission advanced on
behalf of the respondents, that the exercise of discretion
under Article 163(2) is final and beyond the scope of judicial
review cannot be accepted. Firstly, because we have rejected
the submission advanced by the respondents, that the scope
and extent of discretion vested with the Governor has to be
ascertained from Article 163(2), on the basis whereof the
submission was canvassed. And secondly, any discretion
exercised beyond the Governors jurisdictional authority,
would certainly be subject to judicial review........
(emphasis supplied)
98.

It is clear from the above analysis made by the Constitution Bench in

Nabam Rebia and Bamang Felix v. Deputy Speaker & Ors. (supra) that
even though the Governor is authorized to exercise some functions under
different provisions of the Constitution, the same are required to be
exercised only on the basis of the aid and advice rendered by him under
Article 163 unless the Governor has been expressly authorized by or under a
Constitutional provision to discharge the concerned function in his own
discretion.

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99.

Coming to the executive powers of the Lt. Governor of NCT of Delhi,

the discretion provided is wider than the discretion that may be exercised by
the Governor of a State under Article 163(1) in view of the expression
"except in so far as he is, by or under any law, required to act in his
discretion" employed in clause(4) of Article 239AA. In other words, the
power of the Lt. Governor to act in his discretion is not confined to
Constitution merely. The Lt. Governor while exercising such powers and
discharging such functions which "any law" requires to be done "in his
discretion" acts on his own judgment without seeking aid and advice of the
Council of Ministers. Further, the proviso to Article 239AA(4) enables the
Lt.Governor in case of difference of opinion to refer the matter to the
President for decision and act according to the decision given thereon by the
President.

Pending such decision of the President, the Lt. Governor is

empowered to take such action or to give such direction if in his opinion the
matter is so urgent that it is necessary for him to take immediate action.
100. In view of this fundamental difference in the powers conferred upon a
Governor of State and the Lt. Governor of NCT of Delhi, it is not possible to
hold that the Lt.Governor is bound to act only on the aid and advice of the
Council of Ministers.
101. This view of ours is fortified by the decision in Devji Vallabhbhai
Tandel v. Administrator of Goa, Daman & Diu And Anr.; (1982) 2 SCC
222 in which the Supreme Court was dealing with an order of detention
under COFEPOSA passed by the Administrator of Union Territory of Goa,
Daman and Diu, which also has an elected Assembly with Council of
Ministers. While considering the provisions of the Government of Union
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Territories Act, 1963 which are pari materia with Article 239AA(4) and the
Government of NCT Act, 1991, the Supreme Court has answered the
question whether the status of the Administrator of Union Territory is
similar to that of the Governor of a State and whether the Administrator has
to act with the aid and advice of the Council of Ministers.
102. Devji Vallabhbhai Tandel (supra) was a writ petition filed under
Article 32 of the Constitution challenging the order of preventive detention
under Conservation of Foreign Exchange and Prevention of Smuggling
Activities Act, 1974 (COFEPOSA) passed by the Administrator of Union
Territory of Goa, Daman & Diu.

As per the Government of Union

Territories Act, 1963, there was an elected assembly with a Council of

Ministers in Union Territory of Goa, Daman & Diu. Section 44 of the said
Act which is analogous to Clause (4) of Article 239AA of the Constitution
provides that the Council of Ministers with the Chief Minister at the head to
aid and advice the Administrator in the exercise of his functions in relation
to matters with respect to which the Legislative Assembly of the Union
Territory has power to make laws except insofar as he is required by or
under the said Act to act in his discretion or by or under any law to exercise
any judicial or quasi judicial functions.

Section 3(1) of COFEPOSA

empowers the Central Government or the State Government to make an

order of detention in terms thereof. Under Section 2(f), 'State Government'
in relation to a Union Territory means the Administrator thereof. However,
having regard to the fact that there is an elected Assembly with the Council
of Minister in Union Territory of Goa, Daman & Diu, it was contended by
the petitioner therein that the status of the Administrator is similar to that of
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the Governor of the State and as such the Administrator has to act with the
aid and advice of the Council of Ministers. Thus, the contention was that the
Administrator on his own cannot make an order of detention. To substantiate
the said submission, the petitioner therein relied upon the ratio in Samsher
Singh (supra), that the Governor acts on the aid and advice of the Council of
Ministers in all matters which vest in the executive whether those functions
are executive or legislative in character and that the Governor does not
exercise the executive functions personally. Rejecting the said contention,
the Supreme Court held that:
"14. Article 74 provides that there shall be a Council of
Ministers with the Prime Minister at the head to aid and advise
the President who shall, in the exercise of his functions, act in
accordance with such advice. The proviso to the Article is not
material. Similarly, Article 163 provides that there shall be a
Council of Ministers with the Chief Minister at the head to aid
and advise the Governor in the exercise of his functions, except
insofar as he is by or under this Constitution required to
exercise his functions or any of them in his discretion. Once we
compare the language of Articles 74 and 163 with the language
of Section 44 of the Act, the difference between the position of
the President and the Governor on the one hand and the
Administrator of the Union Territory on the other becomes
manifest. The first difference is that he is similarly situated with
the Governor but not with the President when he is to act in his
discretion under the Act. Further, the Administrator has to act
on his own unaided by the Council of Ministers when he is to
exercise any judicial or quasi-judicial functions. The nearest
analogy to this provision is one to be found in Article 217(3)
when the President has to determine the age of a Judge of the
High Court. It has been held that while exercising the power
conferred by Article 217(3), the President discharges a judicial
function and is not required to act on the advice of the Council
of Ministers, his only obligation being to decide the question
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about the age of the Judge after consulting the Chief Justice of
India (see Union of India v. Jyoti Prakash Mitter ). But there the
analogy ends. The Administrator even in matters where he is
not required to act in his discretion under the Act or where he is
not exercising any judicial or quasi-judicial function, is not
bound to act according to the advice of the Council of
Ministers. This becomes manifest from the proviso to Section
44(1). It transpires from the proviso that in the event of a
difference of opinion between the Administrator and his
Ministers on any matter, the Administrator shall refer the matter
to the President for decision and act according to the decision
given thereon by the President. If the President in a given
situation agrees with what the Administrator opines contrary to
the advice of the Council of Ministers, the Administrator would
be able to override the advice of the Council of Ministers and
on a reference to the President under the proviso, obviously the
President would act according to the advice of the Council of
Ministers given under Article 74. Virtually, therefore, in the
event of a difference of opinion between the Council of
Ministers of the Union Territory and the Administrator, the
right to decide would vest in the Union Government and the
Council of Ministers of the Union Territory would be bound by
the view taken by the Union Government. Further, the
Administrator enjoys still some more power to act in derogation
of the advice of the Council of Ministers.
15. The second limb of the proviso to Section 44(1) enables
the Administrator that in the event of a difference of opinion
between him and the Council of Ministers not only he can refer
the matter to the President but during the interregnum where the
matter is in his opinion so urgent that it is necessary for him to
take immediate action, he has the power to take such action or
to give such directions in the matter as he deems necessary. In
other words, during the interregnum he can completely override
the advice of the Council of Ministers and act according to his
light. Neither the Governor nor the President enjoys any such
power. This basic functional difference in the powers and
position enjoyed by the Governor and the President on the one
hand and the Administrator on the other is so glaring that it is
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not possible to hold on the analogy of the decision in Samsher

Singh case that the Administrator is purely a constitutional
functionary bound to act on the advice of the Council of
Ministers and cannot act on his own. Therefore, for this
additional reason also the submission of Mr Jethmalani must be
rejected."
103. Section 44(1) of the Government of Union Territories Act, 1963
which is pari materia with Article 239AA(4) may be reproduced hereunder
for ready reference:
"44. Council of Ministers.-(1) There shall be a Council of
Ministers in each Union territory with the Chief Minister at the
head to aid and advise the Administrator in the exercise of his
functions in relation to matters with respect to which the
Legislative Assembly of the Union territory has power to make
laws except in so far as he is required by or under this Act to act
in his discretion or by or under any law to exercise any judicial
or quasi-judicial functions :
Provided that, in case of difference of opinion between
the Administrator and his Ministers on any matter, the
Administrator shall refer it to the President for decision and act
according to the decision given thereon by the President, and
pending such decision it shall be competent for the
Administrator in any case where the matter is in his opinion so
urgent that it is necessary for him to take immediate action, to
take such action or to give such direction in the matter as he
deems necessary.
xxxx

xxxx

xxxx

xxxx"

104. As noticed above, the discretion conferred on the Lt. Governor under
the Proviso to Article 239AA(4) to refer the matter to the President in case
of a difference of opinion between the Chief Minister and Lt. Governor is
not available under Article 163. Therefore, the scope of aid and advice
under Article 239AA(4) is not comparable to the scope of aid and advice
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received by the Governor of State under Article 163 of the Constitution, but
it is analogous to Section 44(1) of the Government of Union Territories Act,
1963.

Therefore,

in

our

considered

opinion,

the

ratio

laid

in

Devji Vallabhbhai Tandel (supra) squarely applies to the case on hand.

105. In this regard, it is also relevant to refer to Chapter V of the
Transaction of Business Rules which prescribed the procedure to be
followed in case of difference of opinion between the Lt. Governor and the
Council of Ministers. Rule 50 provides that in case of difference of opinion
the Lt. Governor shall refer it to the Central Government for the decision of
the President and shall act according to the decision of the President.
Whenever such reference is made, under Rule 51 the Lt. Governor is
competent to direct that action shall be suspended pending the decision of
the President on such case or in any case. He is also competent in a case
where in his opinion it is necessary that immediate action should be taken to
give such direction as he deems necessary. Rule 52 further provides that
where a direction has been given by the Lt. Governor in terms of Rule 51,
the Minister concerned shall take action to give effect to such direction.
Rule 56 also states that when a matter has been referred by the Lieutenant
Governor for the decision of the President further action thereon shall not be
taken except in accordance with the decision of the Central Government.
It is clear from the above provisions of the Transaction of Business Rules
that it is always open to the Lt. Governor to differ with the decision of the
Council of Ministers, in which event, he has to follow the procedure as
prescribed under Chapter V of the Transaction of Business Rules.

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106. It is also relevant to note Rule 10 of the Transaction of Business Rules

which prescribed the procedure for circulation of the proposals referred to in
the Schedule to the Rules from the Minister concerned to the Chief Minister.
Sub-Rule (5) of Rule 10 expressly provides that on receipt of the acceptance
of the Chief Minister to the recommendations contained in the proposal, the
Secretary to Council of Ministers shall communicate the decision to the
Lieutenant Governor and the same can be passed on to the Secretary
concerned for taking necessary steps to issue the orders in case no reference
to the Central Government is required in pursuance of the provisions of
Chapter V.
107. In the light of the above-noticed provisions, we have no manner of
doubt to conclude that every decision taken by the Council of Ministers shall
be communicated to the Lt. Governor for his views. The orders in terms of
the decision of the Council of Ministers can be issued only where no
reference to the Central Government is required as provided in Chapter V of
the Transaction of Business Rules.
108. Making a reference by the Lt. Governor to the Central Government as
provided under Chapter V of the Transaction of Business Rules is possible
only when the decision is communicated to the Lt. Governor. Therefore,
there is no substance in the contention that an order can be passed pursuant
to the decision of the Council of Ministers without communicating such
decision to the Lt.Governor for his views/concurrence with respect to any of
the matters enumerated in List-II or List-III except the three reserved matters
in Entries 1, 2 and 18 of List-II. The emphasis sought to be laid by the
learned Senior Counsels who appeared for GNCTD on Rule 23 of the
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Transaction of Business Rules to substantiate the contention that those

proposals which are mentioned in Rule 23 alone are required to be submitted
to Lt. Governor is misplaced. The word "essentially" employed in Rule 23
makes clear the legislative intent that the proposals specified (i) to (viii)
therein are not exhaustive.

Any interpretation contra would render the

Transaction of Business Rules ultra vires Clause (4) of Article 239AA of the
Constitution.
109. Our above interpretation of the constitutional provision is in
consonance with the object of the 69th Constitution Amendment. We may
note that Article 239 AA of the Constitution was inserted by the
69th Constitution Amendment as per the recommendations of the
Balakrishnan Committee which was set up to give its report on
Re-organization of Delhi Set-up. The relevant recommendation in this
regard reads as follows:
6.5.5 In paragraphs 6.5.2 and 6.5.3 we have briefly
summarised the arguments for and against making Delhi a
constituent State of the Union. After the most careful
consideration of all the arguments and on an objective appraisal,
we are fully convinced that most of the arguments against
making Delhi a State of the Union are very substantial, sound
and valid and deserve acceptance. This was also the view
expressed before us by some of the eminent and knowledgeable
persons whom we interviewed. As these arguments are selfevident we find it unnecessary to go into them in detail except
those relating to constitutional and financial aspects covered by
them.
6.5.6 The important argument from the Constitutional angle is
based on the federal type of our Constitution under which there
is a constitutional division of powers and functions between the
Union and the State. If Delhi becomes a full-fledged State,
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there will be a constitutional division of sovereign, legislative

and executive powers between the Union and the State of Delhi.
One of the consequences will be that in respect of matters in the
State List, Parliament will have no power on (sic) jurisdiction
to make any law except in the special and emergency situations
provided for under the Constitution and to that extent the Union
Executive cannot exercise executive powers or functions. The
constitutional prohibition on the exercise of powers and
functions will make it virtually impossible for the Union to
discharge its special responsibilities in relation to the national
capital as well as to the nation itself. We have already indicated
in an earlier chapter the special features of the national capital
and the need for keeping it under the control of the Union
Government. Such control is vital in the national interest
irrespective of whether the subject matter is in the State field or
Union field. If the administration of the natural capital is
divided into rigid compartments of State of field and Union
field, conflicts are likely to arise in several vital matters,
particularly if the two Governments are run by different
political parties. Such conflicts may, at times, prejudice the
national interest.......
6.5.9 We are also impressed with the argument that Delhi as the
national capital belongs to the nation as a whole and any
constituent State of the Union of which Delhi will become a
part would sooner or later acquire a predominant position in
relation to other States. Sufficient constitutional authority for
Union intervention in day-to-day matters, however vital some
of, them may be, will not be available to the Union, thereby
prejudicing the discharge of its national duties and
responsibilities.
..
LT. GOVERNOR AND COUNCIL OF MINISTERS
6.7.19 As a necessary corollary to the establishment of a
responsible Government for Delhi the structure of the executive
should be more or less on the pattern provided by the
Constitution. Accordingly, there should be a Head of the
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Administration with a Council of Ministers answerable to the

Legislative Assembly. As Delhi will continue to have the status
of a Union territory, Article 239 will apply to it and so it will
have an Administrator with such designation as may be
specified. The present designation of the Lt. Governor may be
continued and recognized in the Constitution itself.
6.7.21 The Administrator should be expressly required to
perform his functions on the aid and advice of the Council of
Ministers. The expression to aid and advice is a well
understood term of art to denote the implications of the Cabinet
system of Government adopted by our Constitution. Under this
system, the general rule is that the exercise of executive
functions by the Administrator has to be on the aid and advice
of his Council of Ministers which means that it is virtually the
Ministers that should take decisions on such matters. However,
for Delhi, the following modifications of this general rule will
have to be adopted:
.
(iii) Thirdly, there is need for a special provision to resolve
differences between the Administrator and his Council of
Ministers on any matter concerning the administration of Delhi.
Normally, the general principle applicable to the system of
responsible Government under the Constitution is that the Head
of the Administration should act as a mere Constitutional
figurehead and will have to accept the advice of the Council of
Ministers except when the matter is left to his discretion.
However, by virtue of Article 239 of the Constitution, the
ultimate responsibility for good administration of Delhi is
vested in the President acting through the Administrator.
Because of this the Administrator has to take a somewhat more
active part in the administration than the Governor of a State. It
is, therefore, necessary to reconcile between the need to retain
the responsibility of the Administrator to the Centre in this
regard and the need to enforce the collective responsibility of
the Council of Ministers to the Legislature. The best way of
doing this is to provide that in case of difference of opinion
which cannot be resolved between the Administrator and his
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Council of Ministers, he should refer the question to the

President and the decision of the President thereon will be final.
In cases of urgency, if immediate action is necessary, the
Administrator may direct action to be taken pending such
decision of the President. A provision of this kind was made for
this very reason not only in the 1951 Act, but also in the 1963
Act relating to the other Union territories as well as in the 1978
Bill.
110. It may also be useful to refer to the Parliamentary Debate of Rajya
Sabha when 69th Amendment of the Constitution was tabled. The Minister
concerned stated as follows:
At no time in the past has it ever been considered possible to
make Delhi a full-fledged State. The Constituent Assembly
went into the matter in great depth. It was observed during
debates that "in the capital city of a large federation like ours
the arrangement should be that in the area over which the
federal Government has to function daily, practically in all
details, that Government should have unfettered power, power
which is not contested by another and subordinate Legislature."
The States Re-organisation Committee and all other committees
have reached the same conclusion.
Several important national and international institutions like the
President, the Parliament, the Supreme Court, etc., as well as all
foreign diplomatic missions, international agencies etc. are
located in Delhi. It is also a place to which high dignitaries from
other nations pay official visits frequently and it is in the
national interest that the highest possible standards should be
maintained in the administration of the National Capital. It is
also in the national interest that the Centre should have control
over the National Capital in all matters irrespective of whether
they are in the State field or Union field.

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If Delhi is made, a full-fledged State it would be

constitutionally impossible for, the Central Government to
intervene in any matter relatable to the State List, such as public
order, public health, essential supplies municipal services, etc.
This complete constitutional prohibition will make it impossible
for the Central Government to discharge its national and
international responsibilities in relation to Capital, if Delhi
becomes a full State.
The Balakrishnan Committee has gone into the matter in depth
and has given several reasons why Delhi, cannot be made a fullfledged State. It has categorically stated that it will be against
the national international responsibility a relation State. (sic)
111. Hence, the accepted object when the 69th Amendment to the
Constitution was incorporated was that Delhi being the National Capital has
special features. The city is of vital importance to the Central Government
as it is the seat of a large number of important and vital institutions such as
the Head of the State, National Legislature, National Executive, Apex
Judiciary, Heads of Armed Forces, Para Military Forces, Foreign Diplomatic
Missions, International Organizations, Important Educational, Medical and
Cultural Centres, etc.

It reflects the ethnic cultural and socio political

diversity of the country and acts as a window for the rest of the world. The
object of the amendment in view of the stated position of Delhi was to
preserve the ultimate responsibility of administration on the President.
112. The settled legal position is that the historical facts and the report
preceding the legislation would throw light in ascertaining the intention
behind the provision and are permissible external aids to Constitution.

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113. The Supreme Court has in several judgments accepted the said
proposition. Reference may be had to the judgment of the Supreme Court in
the case of R.S.Nayak v. A.R.Antulay; (1984) 2 SCC 183, where the court
held as follows:
33. The trend certainly seems to be in the reverse gear in that in
order to ascertain the true meaning of ambiguous words in a
statute, reference to the reports and recommendations of the
Commission or Committee which preceded the enactment of the
statute are held legitimate external aids to construction. The
modern approach has to a considerable extent eroded the
exclusionary rule even in England. A Constitution Bench of this
Court after specifically referring to Assam Railways and Trading
Co. Ltd. v. I.R.C. in State of Mysore v. R.V. Bidap; (1973) II
LLJ 41 8SC observed as under:
The trend of academic opinion and the practice in the European
system suggest that interpretation of a statute being an exercise in
the ascertainment of meaning, everything which is logically
relevant should be admissible.... There is a strong case for
whittling down the Rule of Exclusion followed in the British
courts, and for less apologetic reference to legislative
proceedings and like materials to read the meaning of the words
of a statute. Where it is plain, the language prevails, but where
there is obscurity or lack of harmony with other provisions and in
other special circumstances, it may be legitimate to take external
assistance such as the object of the provisions, the mischief
sought to be remedied, the social context, the words of the
authors and other allied matters.
114. In the case of Shrimant Shamrao Suryavanshi & Anr. v. Prahlad
Bhairoba Suryavanshi by LRs & Ors.; (2002) 3 SCC 676, the court relying
upon the judgment of R.S.Nayak v. A.R.Antulay (supra), held as follows:

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8. Earlier, the assistance of historical facts or any document

preceding the legislation was very much frowned upon for
purposes of construction of statutes. At that time, there was some
injunction against applying principle of looking into the historical
facts or reports preceding the legislation in construing a statute.
However, by passage of time, this embargo has been lifted.
9. In R.S. Nayak v. A.R. Antulay AIR 1984 SC 684 AT P.686, it
was held thus:
"Reports of the Committee which preceded the enactment of
legislation, reports of Joint Parliamentary Committee, report of a
commission set up for collecting information leading to the
enactment are permissible external aids to construction. If the
basic purpose underlying construction of a legislation is to
ascertain the real intention of the Parliament, why should the aids
which Parliament availed of such as report of a Special
Committee preceding the enactment, existing state of Law, the
environment necessitating enactment of legislation, and the
object sought to be achieved, be denied to Court whose function
is primarily to give effect to the real intention of the Parliament in
enacting the legislation. Such denial would deprive the Court of a
substantial and illuminating aid to construction.
The modern approach has to a considerable extent eroded the
exclusionary rule even in England."
10. Now the accepted view is that the document or report
preceding the legislation can legitimately be taken into
consideration while construing the provisions of an Act.
115. In the case of T.M.A. Pai Foundation v. State of Karnataka; (2002) 8
SCC 481, the Supreme Court again relying upon the judgment of R.S.Nayak
v. A.R.Antulay (supra), held as follows:
203. One of the known methods to interpret a provision of an
enactment of the Constitution is to look into the historical facts or
any document preceding the legislation.
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204. Earlier, to interpret a provision of the enactment or the

Constitution on the basis of historical facts or any document
preceding the legislation was very much frowned upon, but by
passage of time, such injunction has been relaxed.
205. In Kesavananda Bharati v. State of Kerala AIR 1973 SC
1461, it was held that the Constituent Assembly debates although
not conclusive, yet the intention of framers of the Constitution in
enacting provisions of the Constitution can throw light in
ascertaining the intention behind such provision.
206. In R.S. Nayak v. A.R. Antulay; AIR 1984 SC 684 AT
P.686, it was held thus:
"Reports of the Committee which preceded the enactment of
legislation, reports of Joint Parliamentary Committee, report of a
commission set up for collecting information leading to the
enactment are permissible external aids to construction. If the
basic purpose underlying construction of a legislation is to
ascertain the real intention of the Parliament, why should the aids
which Parliament availed of such as report of a Special
Committee preceding the enactment, existing state of Law, the
environment necessitating enactment of legislation, and the
object sought to be achieved, be denied to Court whose function
is primarily to give effect to the real intention of the Parliament in
enacting the legislation. Such denial would deprive the Court of a
substantial and illuminating aid to construction.
The modern approach has to a considerable extent eroded the
exclusionary rule even in England."
207. Thus, the accepted view appears to be that the report of the
Constituent Assembly Debates can legitimately be taken into
consideration for construction of the provisions of the Act or the
Constitution. In that view of the matter, it is necessary to look
into the Constituent Assembly Debates which led to enacting
Articles 29 and 30 of the Constitution.

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116. For the aforesaid reasons, we are of the considered view that it is
mandatory under the Constitutional scheme to communicate the decision of
the Council of Ministers to the Lt. Governor even in relation to the matters
in respect of which power to make laws has been conferred on the
Legislative Assembly of NCTD and an order thereon can be issued only
where the Lt. Governor does not take a different view.
117. Hence, the contention on behalf of the Government of NCT of Delhi
that the Lt. Governor is bound to act only on the aid and advice of the
Council of Ministers is untenable and cannot be accepted.
Reference to a Larger Bench-if warranted:
118. It is contended by Sh.Dayan Krishnan, the learned Senior Counsel
appearing for the GNCTD that since it has been authoritatively held by two
Coordinate Benches i.e. Om Prakash Pahwa v. State of Delhi (supra) and
United RWAs Joint Action v. Union of India (supra) of this Court that the
Lt.Governor of GNCTD is bound by the aid and advice tendered by the
Council of Ministers, it is not open to this Bench to hold otherwise.
119. On the other hand, by placing reliance on the decision of the Supreme
Court in Devji Vallabhbhai Tandel (supra) and the decision of another
Co-ordinate Bench of this Court in Delhi High Court Bar Association v.
Union of India (supra), it is contended by Sh.Sanjay Jain, the learned ASG
that the decisions in Om Prakash Pahwa v. State of Delhi (supra) and
United RWAs Joint Action v. Union of India (supra) are per incuriam and
are not binding.

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120. The Govt. of NCTD also filed applications being CM Nos.12673,

12674,
W.P.(C)

12754,

13616,

Nos.8867,

12753,

8382,

12752

9164,

and

7887,

13619

7934,

of

2016

8190/2015

in
and

W.P.(C) 348/2016 respectively, with a specific prayer to constitute a Larger

Bench

and

refer

the

present

petitions

to

the

Larger

Bench.

Similar application being Crl.M.A. No.4864/2016 has been filed in

W.P.(Crl.) No.2099/2015.
121. Ms.Indira

Jaising,

Senior

Advocate

appeared

for

the

applicant/GNCTD in all the said applications and contended that in view of

the perceived conflict between the judgments rendered by the Co-ordinate
Benches of this Court, it would be appropriate that the issue is referred to a
Larger Bench after framing questions of law which require consideration.
Placing reliance upon Mahadeolal Kanodia v. Administrator General of
West Bengal; (1960) 3 SCR 578, State of Tripura v. Tripura Bar
Association and Others; (1998) 5 SCC 637, Dr. Vijay Laxmi Sadho v.
Jagdish; (2001) 2 SCC 247, Official Liquidator v. Dayan and Others;
(2008) 10 SCC 1, U.P. Power Corpn. Ltd. v. Rajesh Kumar; (2012) 7 SCC
1, Sundarjas Kanyalal Bhatija v. Collector; (1989) 3 SCC 396 and P.
Suseela v. University Grants Commission and Others; (2015) 8 SCC 129,
it is also contended that the law laid down by the Co-ordinate Benches
cannot be distinguished either on the ground that they are distinguishable on
facts or as per incuriam.
122. It is no doubt true that in Om Prakash Pahwa v. State of Delhi
(supra), United RWAs Joint Action v. Union of India (supra) and Delhi
High Court Bar Association v. Union of India (supra), the provisions of
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Article 239AA of the Constitution of India have been considered and

interpreted by the Coordinate Benches of this Court. It is also not in dispute
that the judicial decorum and legal propriety demand that where a Single
Judge or a Division Bench does not agree with the decision of a Bench of
Coordinate jurisdiction, the matter shall be referred to a Larger Bench
[Vide A.P. v. B.Satyanarayana Rao; (2000) 4 SCC 262, CIT v. Saheli
Leasing & Industries Ltd; (2010) 6 SCC 384 and U.P. Power Corpn. Ltd.
v. Rajesh Kumar; (2012) 7 SCC 1].
123. However, having carefully gone through the abovesaid three
judgments rendered by the Co-ordinate Benches, we are of the view that in
none of the matters, the issue as to whether the Lt. Governor of NCT of
Delhi while exercising the executive functions under Article 239AA(4) is
bound to act only on the aid and advice of the Council of Ministers was
considered or decided.
involved

in

these

To clarify, we shall discuss in brief the issues

three

decisions

as

well

as

the

observations

made/conclusions reached by this Court.

124. In Om Prakash Pahwa v. State of Delhi (supra), the challenge was
to a public notification issued by the Government of NCT of Delhi under
Section 100(3) of the Motor Vehicles Act, 1988 approving a scheme earlier
proposed under Section 99 of the Act. Section 99 and Section 100 of
Motor Vehicles Act employed the expression State Government.
The State Government has to formulate the scheme and consider the
objections received from the public. One of the contentions raised on behalf
of the petitioners therein was since Sections 99 and 100 of the Motor
Vehicles Act, 1988 use the expression State Government, the function of
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hearing and deciding objections under Section 100(2) must be discharged by

the Lt. Governor himself. It is contended that under Section 41 of the
GNCTD Act, 1991, the Lt. Governor shall act in his discretion in a matter
which is required by any law to act in his discretion. The objection was that
the hearing contemplated by Section 100(2) is a function which could not
have been delegated. In Para 60, the Division Bench proceeded to consider
the nature of power exercised and functions discharged by the
State Government under Sections 99 and 100 of Motor Vehicles Act and to
find out what is the concept of State Government in relation to Union
Territory. In para 62 and para 63, the Division Bench noticed Clause (4) of
Article 239AA of the Constitution and Sections 41 and 44 of the GNCTD
Act, 1991. The Division Bench also noticed Allocation of Business Rules,
1993 made by the President in exercise of the powers conferred by
Section 44 of GNCTD Act in particular Rule 3 which provides that the
Lieutenant Governor shall in consultation with the Chief Minister allocate to
the Ministers the business of the GNCTD regarding the matters with respect
to which the Council of Ministers is required under Article 239AA to aid
and advice the Lt. Governor. The Division Bench examined the scope and
impact of Article 239AA in the light of the ratio laid down in Samsher
Singh (supra) and held:
"67. The phraseology employed by Clause (4) of Article
239AA deserves to be compared with that employed in Article
163. The Lt Governor of NCT of Delhi would be aided and
advised by the Council of Ministers in the exercise of his
functions in relation to the matters with reference to which the
legislative assembly has power to make laws. However, the
Governor while exercising such powers and discharging such
functions which 'any law' requires to be done 'in his discretion'
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are not associated with the aid and advice of the council of
ministers. There the Lt Governor acts in his discretion.
68. To put it briefly what the Governor of a State may do at his
discretion must be so provided for by the Constitution. What the
Lt Governor of NCT of Delhi may do at his discretion may be
provided by or under 'any law' and not the Constitution merely.
xxx

xxx

xxx

76. In all matters which vest in the executive, whether those

functions are executive or legislative in character, the President
or the Governor acts on the aid and advice of the council of
ministers. Neither the President nor the Governor exercises the
executive function personally excepting when the Constitutional
scheme itself dictates to the contrary such as Articles 356 and
163(2) of the Constitution.
77. The power to prepare and publish a proposal regarding road
transport service of a STU within the meaning of Section 99 is
done in exercise of the executive power of the State.
Under Section 99 read with Section 2(41), the Lt Governor
while formulating the proposal would act on the aid and advice
of the council of ministers. It is a policy decision to be taken in
public interest as contemplated by Section 99. Section 99 is not
a provision which requires the Governor to act in his discretion.
78. Receiving, considering and deciding the objections
under Section 100 is not a power referable to the executive
power of the State. Under Section 100 read with Section
2(41) of the Act, the Parliament has conferred a power on the Lt
Governor and requires the Lt Governor to act 'in his discretion'.
The nature of the function is quasi-judicial. Here Section 41 of
the Govt of NCT of Delhi Act, 1991, is attracted, whereunder
the Lt Governor has to act 'in his discretion', the exercise being
quasi judicial. In G. Nageshwara Rao (supra), the exercise of
the power conferred on the State Govt. under section 68D of the
Motor Vehicle Act, 1939 was held to be 'judicial' in nature. It
was because under the scheme of the then legislation there was
a dispute between the two parties i.e. the objectors and the
STU-pitted like adversaries in litigation, and the State Govt was
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obliged to decide the dispute after giving a personal hearing and

following the rules of judicial procedure. Under Section 99 of
the Motor Vehicles Act, 1988 there are no adversaries. The Lt
Governor prepares and publishes the proposal under Section
99 read with Section 100(1) and receives, hears and decides the
objections under Section 100(2). So the authority proposing the
scheme and deciding the objections is the same but the
character of the two functions differs. The Lt Governor though
head of the State is an executive head of the State exercising the
executive power of the State under Section 99 but is merely an
administrative authority acting at 'his own discretion'
under Section 100. Inasmuch as the principles of natural justice
must be complied with the nature of the power exercised by the
Lt Governor under section 100 becomes quasi-judicial. The
procedure for receiving and considering the objections not
provided by the statute itself can be devised."
125. As could be seen, the Division Bench having considered the nature of
the power exercised by the Lt.Governor under Sections 99 and 100 of the
Motor Vehicles Act held that the power to prepare and publish a proposal
under Section 99 being the executive power of the State, the Lt. Governor
would act on the aid and advice of Council of Ministers. With regard to the
power under Section 100 to receive, consider and decide the objections, it
was held that the said power being quasi judicial is not referable to the
executive power of the State.
126. Coming to United RWAs Joint Action case, the Division Bench, of
which one of us (Chief Justice) is a Member, was dealing with the question
whether under Section 20(1) of CAG Act, 1971, the CAG can be requested
to undertake the audit of accounts of DISCOMS which are public-private
partnerships.

One

of

the

contentions

raised

on

behalf

of

the

petitioners/appellants was Delhi has its special status under Article 239AA

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of the Constitution and that under Article 239AA(4) the Council of Ministers
are to aid and advice the Administrator of Delhi in exercise of his functions
in relation to matters with respect to which the Legislative Assembly has
power to make laws. It was also contended that since the power to make
laws with respect to audit of the accounts of the Union and of the States
lies with the Parliament in terms of Entry 76 of List I of Schedule VII of the
Constitution, and not with the Legislative Assembly of NCT of Delhi, the
Lt. Governor of NCTD in exercise of powers conferred under Section 20 is
not to act on the aid and advise of the Council of Ministers. In other words,
CAG Act being a law made by the Parliament, the Lt.Governor in taking
decision under Article 239AA(4) is not to act on the aid and advice of the
Council of Ministers.
127. The Division Bench rejected the said contention holding that whether
CAG is to be requested to undertake the audit of the accounts of any body or
authority in terms of Section 20(1) of CAG Act, has to be decided by the
Lt. Governor of Delhi, depending upon whether such body or authority is
under the domain of Union/Parliament or under the domain of GNCTD/State
Legislature. It was also held that "electricity" being a concurrent subject, it
is the Legislative Assembly of NCTD which is concerned with the
functioning of DISCOMS and it is GNCTD which is concerned with the
State Level transmission and distribution of electricity. Having opined that
Lt. Governor in the matter of issuing a direction under Section 20 of CAG
Act, does not act as the representative of Union of India, it was held that the
direction of the Administrator of Delhi for audit of DISCOMS in exercise of
power under Section 20 of the CAG Act has to be on the aid and advice of

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the Council of Ministers, GNCTD and not eo-nominee. In concluding that

the Administrator exercises the power under Section 20 of CAG Act does
not act eo-nominee, the Division Bench followed the law laid down in
State of Gujarat v R. A. Mehta; 2013 (3) SCC 01/2013 (1) SCC 01 and the
language of sub-section (1) of Section 20 of CAG Act.
128. The relevant paragraphs from United RWAs Joint Action (supra) may
be reproduced hereunder for ready reference:
"45. In our opinion, there is no merit in the said challenge
also. The reasons which prevail with us to hold so are as under:
(A) The contention, that since the functions and powers of CAG
are to be prescribed by a law made by the Parliament, the
Administrator of Delhi in exercise of powers under Section 20
is not to act on the aid and advise of GNCTD and / or its
Council of Ministers and the contention that under Entry 76 in
List I of the 7th Schedule, the power to make law with respect
to audit of accounts of Union and States is with the Parliament
and not with the Legislature of State of Delhi, is misconceived.
(B) The decision to be taken by the Administrator i.e. the Lt.
Governor of Delhi under Section 20 is the need for directing
CAG to audit the accounts of a body or authority and not a
decision whether a law should be made in relation to the audit
of the accounts of Union of India or of Delhi. The question,
whether such decision is to be taken by the Administrator as
Lieutenant Governor of Delhi, which by virtue of Article
239AA has a hybrid position, is dependent upon whether the
body or authority direction qua accounts of which is to be
issued is under the domain of Union / Parliament or under the
domain of GNCTD / State Legislature.
(C) It cannot be doubted that DISCOMs are under the domain
of GNCTD and / or Legislature of State and not of the Union /
Parliament. To say, that the Administrator for taking the said
decision is to act as the representative of Union of India would
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defeat the very purpose inasmuch as Union would have no

concern with the accounts of DISCOMs. It is the State
Legislative Assembly which is concerned with the functioning
of DISCOMs. Electricity is a concurrent subject and it is the
State Government i.e. GNCTD only which alone is concerned
with the State level transmission and distribution of electricity.
(D) Once it is held that the Administrator of Delhi in the
matter of issuance of a direction under Section 20 does not act
as the representative of Union of India, the next question which
arises is whether the Administrator, in exercise of such power,
is to act eo nomine i.e. by or in that name or on the aid and
advise of the Council of Ministers of GNCTD."
129. As is evident what was considered and decided in United RWAs Joint
Action (supra) was while issuing the direction under Section 20 of CAG Act,
whether the Lt.Governor exercises the executive powers of the State and
thus is to act on the aid and advice of the Council of Ministers or whether he
acts eo-nominee in exercise of his discretion. As noticed above, it was held
that under Section 20 of CAG Act, the Lt.Governor does not act eo-nominee
and that the exercise of power is to be on the advice of Council of Ministers
only.
130. Thus it is clear that in both Om Prakash Pahwa (supra) and
United RWAs Joint Action (supra), the Co-ordinate Benches had only
considered the question as to whether the Lt.Governor of NCTD while
passing the orders impugned therein was required to exercise the functions
under the respective statutes i.e. Motor Vehicles Act and CAG Act in his
discretion or in exercise of the executive powers of the State on the aid and
advice of the Council of Ministers and the question was answered on
interpretation of the statutory provisions under which the impugned orders
were passed. The question whether the Lt. Governor while exercising his
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functions in relation to matters with respect to which the Legislative

Assembly of NCTD has powers to make laws is bound to act only on the aid
and advice of the Council of Ministers or whether under the Constitutional
scheme he can differ with the decision of the Council of Ministers was
neither raised nor considered. The ratio laid in the said decisions, therefore,
cannot be construed to mean that the Lt. Governor cannot discharge any
function or exercise any power without the aid and advice of the Council of
Ministers.
131. However, pointing out that in spite of the fact that 'audit of accounts'
falls in Entry 76 of List-I and thus beyond the legislative competence of the
Legislative Assembly of NCTD, it was held in United RWAs Action (supra)
that the Lieutenant Governor was bound by the aid and advice of the Council
of Ministers, it is sought to be contended on behalf of GNCTD that it was
held in the said decision that even in respect of those matters for which the
Legislative Assembly has no powers to make laws under Clause (3) of
Article 239AA, the Lt. Governor in the exercise of his functions is bound by
the aid and advice of the Council of Ministers.
132. We are unable to agree with the said contention. Such argument was
neither addressed nor considered by the Division Bench. Though 'audit of
accounts' falls outside the legislative competence of Legislative Assembly of
NCTD, the Division Bench opined that the decision of the Lt. Governor
under Section 20(1) of CAG Act depends upon whether the body or
authority whose accounts are to be audited is under the domain of Union or
the State. Having thus proceeded further, the Division Bench held that the
exercise of powers by Lt. Governor under Section 20 of CAG Act is to be on
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advice of Council of Ministers since DISCOMS are under the domain of

GNCTD. The Division Bench had also taken into consideration the fact that
'electricity' is a concurrent subject and it is the GNCTD which is concerned
with the State level transmission and distribution of electricity.
133. In Delhi High Court Bar Association (supra), the issue for
consideration was the interpretation of clause (3)(c) of Article 239AA of the
Constitution, with reference to the legislative competence of the Legislative
Assembly of Delhi and the same has been explained while relying upon the
interpretation and principles laid down by the Supreme Court and the
Full Bench of this Court on Article 239AA of the Constitution. The said
decision interprets Article 239AA of the Constitution only with regard to the
competence of the Legislative Assembly of Delhi to legislate.
134. On a careful consideration of all the above-said three decisions of the
Co-ordinate Benches, we are of the view that there is no conflict of view as
sought to be portrayed by the learned Senior Counsels appearing for
GNCTD. The said decisions, in our opinion, are binding precedents only to
the extent of the provisions of the respective statutes, which were interpreted
in the light of the nature of the functions of the Lt.Governor of NCTD under
Article 239AA of the Constitution.
135. The law is well-settled that in order to enable the Court to refer any
case to a Larger Bench for reconsideration, it is necessary to point out that
particular provision of law having a bearing over the issue involved was not
taken note of or there is an error apparent on its face or that a particular
earlier decision was not noticed, which has a direct bearing or has taken a
contrary view. The judicial decorum and legal propriety demand that where
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a learned Single Judge or a Division Bench does not agree with the decision
of a Bench of coordinate jurisdiction, the matter shall be referred to a Larger
Bench [Vide: A.P. vs. Satyanarayana Rao; (2000) 4 SCC 262, CIT VS.
Saheli Leasing & Industries Ltd.; (2010) 6 SCC 384 and U.P. Power
Corpn. Ltd. vs. Rajesh Kumar; (2012) 7 SCC 1].
136. None of the above-stated circumstances arise here and therefore, there
is no need for reference to a Larger Bench. The applications filed on behalf
of GNCTD seeking reference of these petitions to a Larger Bench are
therefore liable to be dismissed.
137. In the light of the conclusions reached above, we propose to consider
each writ petition on its facts.
138. Before doing so, it may be added that in W.P.(C) Nos.7934/2015,
8190/2015, 9164/2015 and 348/2016 filed as Public Interest Litigation, an
objection has been raised by the learned counsel appearing for the Govt. of
NCT of Delhi/respondent as to the maintainability of the said petitions on
the ground that the petitions are motivated and not bona fide. However, we
do not think it is necessary to express any opinion as to the correctness of the
said allegations since the issues raised therein which, we are satisfied, are of
public importance, are also the subject matter of other petitions heard by us.
Though the genuineness of the petitioner in moving a public interest
litigation is a test that needs to be applied to decide the maintainability of the
PIL, as held in Vishwanath Chaturvedi v. Union of India; AIR 2007 SC
(Supp) 163, it is not proper for the Court to decline to entertain the petition
without looking into the subject matter of his complaint. Particularly, where
it is established that there is failure of public duty or dereliction of
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constitutional or statutory obligation on the part of the Government, this

Court would be in error in declining to entertain the petition on the
technicality of locus standi. Hence, we consider it appropriate to decide the
writ petitions filed as PIL also on merits without going into the tenability of
the objection raised with regard to the maintainability.
W.P.(C) No.5888/2015 (Govt. of NCT of Delhi vs. Union of India)
139. The Govt. of NCT of Delhi filed this petition challenging
(i) Notification S.O.1368(E) dated 21.05.2015, and (ii) Notification
S.O.1896(E) dated 23.07.2014 issued by the Union of India, Ministry of
Home Affairs.
140. The averments in the writ petition in brief may be set out as under:
(i)

Section 2(s) of the Code of Criminal Procedure, 1973 defines

'police station' as any post or place declared generally or specially by

the State Government to be a police station and includes any local area
specified by the State Government in that behalf. In exercise of the
power so conferred, certain notifications were issued by the
Administrator of the Union Territory of Delhi from time to time.
One such notification was Notification No.12(7)88-HP-II dated
01.08.1986

whereunder

the

Anti-Corruption

Branch,

Delhi

Administration at Tis Hazari, Delhi was declared to be a police station

for (i) offences relating to illegal gratification under Sections 161, 162,
163, 164, 165 and 165A of the IPC, 1860; (ii) offences under the
Prevention of Corruption Act, 1947 and (iii) attempts, abatement and
conspiracies in relation to or in connection with the aforesaid offence
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and any other offence committed in the same course of the same
transaction arising out of the same set of facts.
(ii)

With effect from 09.09.1988, the Prevention of Corruption Act,

1988 has come into force thereby repealing the Prevention of

Corruption Act, 1947 and the Criminal Law Amendment Act, 1952.
By virtue of the said Act of 1988, Sections 161 to 165A of IPC also
stood omitted.
(iii)

Consequent thereto vide Notification dated 08.11.1993 issued

by the Lt. Governor of NCT of Delhi in exercise of the powers

conferred by Section 2(s) of the Code of Criminal Procedure, 1973, the
earlier notification under Section 2(s) dated 01.08.1986 was
superseded and the Anti-Corruption Branch of NCT of Delhi, Delhi
Police Station was declared to be the Police Station for offences under
the Prevention of Corruption Act, 1988 and that it shall have
jurisdiction all over the National Capital Territory of Delhi.
(iv)

While so, by Notification dated 24.09.1998 issued by the Union

of India, Ministry of Home Affairs, it was directed that the

Lt. Governor of NCT of Delhi shall in respect of matters connected
with 'public order', 'police' and 'service' exercise the power and
discharge the function of the Central Government to the extent
delegated from time to time to him by the President, in consultation
with the Chief Minister of NCT of Delhi except in those cases where,
for reasons to be recorded in writing, he does not consider it expedient
to do so. The said notification was issued in terms of the direction of

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the President in pursuance of the powers conferred under Article

239(1) of the Constitution.
(v)

Thereafter on 23.07.2014, the Ministry of Home Affairs issued

another notification declaring that the Notification dated 08.11.1993

issued by the Lt. Governor of NCT of Delhi shall be applicable to the
officers and the employees of that Government only and accordingly
effected the necessary amendment to the said Notification dated
08.11.1993.
(vi)

By letter dated 30.09.2014, it was clarified by the Ministry of

Home Affairs that the Notification dated 23.07.2014 is effective from

the date of its publication in the official gazette.
(vii)

In February, 2015 elections for the Legislative Assembly of the

NCT of Delhi were held and a Legislative Assembly has been

constituted.
(viii) On 16.05.2015, the Chief Secretary of Delhi was appointed in a
temporary vacancy vide order passed by the Lt. Governor. However,
before making such appointment, the Chief Minister and his Council of
Ministers were not consulted.
(ix)

Subsequently, by Notification dated 21.05.2015 issued by the

Union of India, Ministry of Home Affairs (impugned notification in

W.P.(C) No.5888/2015), the earlier Notification dated 08.11.1993 has
been further amended to the following effect:

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(a)

Lt. Governor is empowered to exercise the powers and

discharge the functions of the Central Government in respect of

the matters connected with "services";
(b)

The Notification dated 08.11.1993 declaring the Anti-

Corruption Branch of NCT of Delhi as Police Station for

offences under the Prevention of Corruption Act, 1988 shall
apply only to officials and employees of National Capital
Territory of Delhi; and that Anti-Corruption Branch Police
Station shall not take any cognizance of offences against
officers,

employees

and

functionaries

of

the

Central

Government.
(x)

GNCTD/petitioner was of the view that it is impermissible

under law to add 'services' also as a subject in respect of which the

Legislative Assembly of Delhi cannot make law.

Similarly,

withdrawing the powers of the Anti-Corruption Branch of Government

of Delhi from enquiring/investigating into offences committed by the
employees of the Central Government was also illegal.
(xi)

On 27.05.2015, a resolution was passed by the Legislative

Assembly of Delhi inter alia directing the Council of Ministers to

continue allocating the work to its officers and employees
notwithstanding the deletion of the subject 'services' from the
legislative powers of the Government of NCT of Delhi as declared in
the Notification dated 21.05.2015.

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(xii)

On 28.05.2015, the present writ petition came to be filed by the

Government of NCT of Delhi with a prayer to declare the Notification

dated 21.05.2015 as illegal and ultra vires the provisions of the
Articles 14, 239 and 239AA of the Constitution and Section 41 of the
Government of NCT of Delhi Act, 1991 and to quash the same.
The Notification dated 23.07.2014 issued by the Ministry of Home
Affairs is also sought to be quashed after declaring the same as illegal
and ultra vires the provisions of the Articles 14, 239 and 239AA of the
Constitution and Section 41 of the Government of NCT of Delhi Act,
1991.
141. The grievance of the writ petitioner/GNCTD is that by virtue of the
impugned Notifications, the Legislative Assembly of National Capital
Territory of Delhi has been deprived of the power to make laws on matters
with respect to 'Services' without following due process of law.

The

contention is that the subjects which are beyond the legislative competence
of the Legislative Assembly of the NCT of Delhi have been expressly
mentioned in Article 239AA and that the same cannot be altered by the
Ministry of Home Affairs by way of a Notification. In other words, the
Ministry of Home Affairs, Government of India seeks to encroach upon the
legislative powers of the Legislative Assembly of NCTD in respect of
Entry 41 of List II without seeking the approval of the Parliament and thus
the impugned Notification is illegal and unconstitutional.

It is also

contended that the power to amend the Constitution has been conferred only
on the Parliament in terms of Article 368 of the Constitution and such power
cannot be exercised by the Ministry of Home Affairs, Government of India.

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142. The further contention is that the impugned action of restricting the
executive control of GNCTD, acting through its ACB, to act on complaints
under the PC Act against the employees and officers of Central Government
is contrary to the scheme of Article 239AA of the Constitution read with
GNCTD Act, 1991 and the Transaction of Business Rules.
143. The impugned notifications dated 21.05.2015 and 23.07.2014 may be
reproduced hereunder for ready reference:
"Ministry of Home Affairs
Notification
New Delhi, the 21st May, 2015
S.O. 1368(E).Whereas article 239 of the Constitution provides
that every Union Territory shall be administered by the President
acting, to such extent as he thinks fit, through an administrator to
be appointed by him with such designation as he may specify;
And whereas article 239AA inserted by the Constitution
(Sixty-ninth Amendment) Act, 1991 provides that the Union
Territory of Delhi shall be called the National Capital Territory
of Delhi and the administrator thereof appointed under article
239 shall be designated as the Lieutenant Governor;
And whereas sub-clause (a) of clause (3) of article 239AA states
that the Legislative Assembly shall have power to make laws for
the whole or any part of the National Capital Territory with
respect to any of the matters enumerated in the State List or in
the Concurrent List in so far as any such matter is applicable to
Union Territories except matters with respect to Entries 1, 2 and
18 of the State List and Entries 64, 65 and 66 of that List in so far
as they relate to the said Entries 1, 2 and 18; and whereas Entry 1
relates to Public Order, Entry 2 relates to Police and Entry 18
relates to Land.
And whereas sub-clause (a) of clause (3) of article 239AA also
qualifies the matters enumerated in the State List or in the
Concurrent List in so far as any such matter is applicable to
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Union Territories. Under this provision, a reference may be made

to Entry 41 of the State List which deals with the State Public
Services, State Public Service Commission which do not exist in
the National Capital Territory of Delhi.
Further, the Union Territories Cadre consisting of Indian
Administrative Service and Indian Police Service personnel is
common to Union Territories of Delhi, Chandigarh, Andaman
and Nicobar Islands, Lakshadweep, Daman and Diu, Dadra and
Nagar Haveli, Puducherry and States of Arunachal Pradesh, Goa
and Mizoram which is administered by the Central Government
through the Ministry of Home Affairs; and similarly DANICS
and DANIPS are common services catering to the requirement of
the Union Territories of Daman & Diu, Dadra Nagar Haveli,
Andaman and Nicobar Islands, Lakshadweep including the
National Capital Territory of Delhi which is also administered by
the Central Government through the Ministry of Home Affairs.
As such, it is clear that the National Capital Territory of Delhi
does not have its own State Public Services. Thus, Services will
fall within this category.
And whereas it is well established that where there is no
legislative power, there is no executive power since executive
power is co-extensive with legislative power.
And whereas matters relating to Entries 1, 2 & 18 of the State
List being Public Order, Police and Land respectively and
Entries 64, 65 & 66 of that list in so far as they relate to Entries
1, 2 & 18 as also Services fall outside the purview of
Legislative Assembly of the National Capital Territory of Delhi
and consequently the Government of NCT of Delhi will have no
executive power in relation to the above and further that power in
relation to the aforesaid subjects vests exclusively in the
President or his delegate i.e. the Lieutenant Governor of Delhi.
Now, therefore, in accordance with the provisions contained
in article 239 and sub-clause (a) of clause (3) of 239AA, the
President hereby directs that

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(i) subject to his control and further orders, the Lieutenant

Governor of the National Capital Territory of Delhi, shall in
respect of matters connected with Public Order, Police,
Land and Services as stated hereinabove, exercise the
powers and discharge the functions of the Central
Government, to the extent delegated to him from time to time
by the President.
Provided that the Lieutenant Governor of the National Capital
Territory of Delhi may, in his discretion, obtain the views of the
Chief Minister of the National Capital Territory of Delhi in
regard to the matter of Services wherever he deems it
appropriate.
2. In the Notification number F. 1/21/92-Home (P) Estt. 1750
dated 8th November, 1993, as amended vide notification
dated 23rd July, 2014 bearing No. 14036/4/2014-Delhi-I (Pt.
File), for paragraph 2 the following paragraph shall be
substituted, namely:
2. This notification shall only apply to officials and
employees of the National Capital Territory of Delhi subject
to the provisions contained in the article 239AA of the
Constitution.
after paragraph 2 the following paragraph shall be inserted,
namely:
3. The Anti-Corruption Branch Police Station shall not take
any cognizance of offences against Officers, employees and
functionaries of the Central Government.
3. This Notification supersedes earlier Notification number
S.O. 853(E) [F. No. U-11030/2/98- UTL] dated 24th
September, 1998 except as respects things done or omitted to
be done before such supersession.
[F. No. 14036/04/2014-Delhi-I (Part File)]

Rakesh Singh, Jt. Secy.

(emphasis supplied)
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"Ministry of Home Affairs

Notification
New Delhi, the 23rd July, 2014
S.O.1896(E) - In pursuance of Section 21 of the General Clauses
Act, 1897 (10 of 1897) read with the Government of India,
Ministry of Home Affairs Notification Number S.O. 183(E),
dated the 20th March, 1974 and having regard to the guidelines
issued by the Central Vigilance Commission over the jurisdiction
of the Central Bureau of Investigation and the Anti-Corruption
Branch, Government of National Capital Territory of Delhi, the
Central Government hereby declares that the notification number
F.1/21/92-Home (P) Estt.1750, dated the 8th November, 1993
issued by the Lieutenant Governor of the National Capital
Territory of Delhi shall be applicable to the officers and
employees of that Government only and for that purpose amends
the said notification, namely:In the said notification, after the existing paragraph, the
following paragraph shall be inserted, namely:"2 This notification shall apply to the officers and
employees of the Government of National Capital Territory of
Delhi".
[FNo.14036/4/2014-Delhi-I(Pt.File)]
I.S. Chala, Jt. Secy."

144. As could be seen, the impugned Notification dated 21.05.2015

contains a direction of the President of India that the Lt. Governor of NCTD
shall, in respect of matters connected with "services", exercise the powers
and discharge the functions of the Central Government, to the extent
delegated to him from time to time by the President. By way of the proviso,
it was added that the Lt. Governor of NCTD may in his discretion obtain the
views of the Chief Minister of NCTD in regard to the matter of services
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wherever he deems it appropriate. The said notification also directs that the
Anti-Corruption Branch shall not take cognizance of offences against
officers, employees and functionaries of the Central Government.
145. It is stated in the Preamble to the said notification dated 21.05.2015
that Article 239AA(3)(a) of the Constitution while providing that the
Legislative Assembly of NCTD shall have power to make laws with respect
to any of the matters enumerated in the State List and Concurrent List except
matters with respect to Entries 1, 2 & 18 of the State List further qualified
"the matters enumerated in the State List or in the Concurrent List insofar as
any such matter is applicable to Union Territories" and that Entry 41 of the
State List deals with the 'State Public Services', 'State Public Service
Commission', which do not exist in the National Capital Territory of Delhi
and further the Union Territories Cadre is common to all Union Territories
which is administered by the Central Government through the Ministry of
Home Affairs and as such "services" fall outside the purview of the
Legislative Assembly of NCTD. Executive power being co-extensive with
legislative power, the Govt. of NCT of Delhi has no executive power in
relation to "services".
"Services" - Whether fall outside the purview of the Legislative
Assembly of NCT of Delhi:
146. The contention of the petitioner/GNCTD is that the Notification dated
21.05.2015 attempts to amend Article 239AA and creates a fourth reserved
subject which is not provided by the Constitution. It is contended that the
said Notification having impinged upon the constitutional right of GNCTD
under Article 239AA to deal with the matters relating to "services" without
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following due process of law is unconstitutional, ultra vires and patently

mala fide.
147. It is contended by Shri Dayan Krishnan, the learned Senior Counsel
appearing for the petitioner/GNCTD:
(i)

that the impugned Notification dated 21.05.2015 which seeks to

amend Article 239AA of the Constitution without following due

process of law is illegal, arbitrary and ultra vires Articles 14, 239,
239AA of the Constitution;
(ii)

that the subjects which are beyond the legislative competence

of the Legislative Assembly of NCTD having been expressly

mentioned in clause (3) of Article 239AA, the same cannot be altered
by the Central Government by issuance of a mere notification without
seeking the approval of the Parliament in terms of Article 368 of the
Constitution;
(iii)

that the impugned notification dated 21.05.2015 is contrary to

Article 239AA(3) and (4) since Article 239AA(2) puts in place a

parliamentary system of the Government for Delhi pursuant to which
the Lt.Governor is bound by the aid and advice of the Council of
Ministers headed by the Chief Minister;
(iv)

that merely because the Legislative Assembly of Delhi has not

exercised the power under clause (3) of Article 239AA with respect to
matters in Entry-41 of List-II, it cannot be held that such power is not
vested in it;

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(v)

that since the legislative power regarding "services", as per

clause (3) of Article 239AA, lies with the Legislative Assembly of

NCTD, the executive power would also lie with GNCTD.
(vi)

that the mere fact that there is no State cadre for Delhi does not

lead to the conclusion that the Legislative Assembly of NCTD has no

power to make laws in relation to matters with respect to Entry- 41 of
List-II since the existence of power and the exercise of the same are
different;
(vii) that since NCTD has a parliamentary democracy with a
Chief Minister, the officers of Union Services are under the
operational control of the elected Government like the officers of IAS
cadre are under the control of the State Governments and are entrusted
with the functions and duties at the discretion of the State.

148. We have also heard Shri Sanjay Jain, the learned ASG appearing for
Union of India.
149. The challenge to the exercise of powers directed to be exercised by
the Lt.Governor in respect of matters connected with "services" is primarily
on the ground that "services" being a matter covered by Entry 41 of List II of
the State List, the executive power in respect of "services" vests with the
Govt. of NCT of Delhi and such constitutional right conferred under clause
(3) and clause (4) of Article 239AA of the Constitution cannot be curtailed
by a mere notification issued by the Central Government. It is contended
that the impugned notification dated 21.05.2015 amounts to altering the very
scheme of the Constitution without seeking the approval of the Parliament in
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terms of Article 368 of the Constitution. The further contention is that the
Lt.Governor of Delhi is bound by the aid and advice of the Council of
Ministers in all matters in respect of which the legislative competence vests
with the Legislative Assembly of Delhi and in other matters where he acts as
a delegate of the President, he is bound to exercise the functions in
consultation with the Chief Minister as provided under Rule 45 of the
Transaction of Business Rules and therefore, the impugned notification
empowering the Lt. Governor to discharge the functions unilaterally is
illegal and unconstitutional.
150. Clause (3)(a) of Article 239AA of the Constitution empowers the
Legislative Assembly of NCTD to make laws for the whole or any part of
the National Capital Territory with respect to any of the matters enumerated
in the State List or in the Concurrent List insofar as any such matter is
applicable to Union Territories except matters with respect to Entries 1, 2 &
18 of the State List and Entries 64, 65 & 66 of that List insofar as they relate
to the said Entries 1, 2 & 18.
151. The above-said Entries of List II deal with the following matters:
Entry 1 Entry 2 Entry 18 Entry 64 Entry 65 Entry 66 -

public order,
police
land
offences against laws with respect to any of the matters
in State List
jurisdiction and power of all courts, except the Supreme
Court, with respect to any of the matters in the State List
fees in respect of any of the matters in the State List but
not including fees taken in any court) of the State List
insofar as they relate to the said Entries 1, 2 and 18.

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152. However, under the impugned notification dated 21.05.2015, the

Lt. Governor of NCTD has been directed to exercise the powers and
discharge the functions of the Central Government in respect of the matters
connected with "services" on the premise that Entry 41 of List II, which
deals with "State Public Services", "State Public Service Commission" is not
applicable to NCT of Delhi, which is a Union Territory.
153. It is not in dispute that 'State Public Services' and 'State Public Service
Commission' do not exist in the National Capital Territory of Delhi.
However, the contention of the petitioner/GNCTD is that since the
Legislative Assembly of NCTD has exclusive legislative competence with
respect to Entry 41 of List II as provided under clause (3)(a) of Article
239AA of the Constitution, as a corollary the executive power lies with
Govt. of NCT of Delhi irrespective of the fact that 'State Public Service' is
not existing in NCTD. It is contended that the impugned notification, in fact
amounts to taking away Entry 41 outside the purview of the Legislative
Assembly of NCTD. It is further contended that such deletion is permissible
only by way of amendment to Article 239AA in terms of Article 368 of the
Constitution but not by executive fiat.
154. Contradicting the contention of the petitioner/GNCTD, it is pleaded in
the counter affidavit filed on behalf of the Union of India that:
"Entry-41 of the State List deals with "State Public Services"
and "State Public Service Commission", which do not exist in
the National Capital Territory of Delhi. Further, Union
Territories cadre consisting of Indian Administrative Service
and the Indian Police Service personnel is common to the
Union Territory of Delhi, Chandigarh, Andamans and Nicobar
Islands, Lakshdweep, Daman and Diu, Dadra and Nagar Haveli,
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Puducherry and the States of Arunachal Pradesh, Goa and

Mizoram which are administered by the Central Government
through the Ministry of Home Affairs. Similarly, DANICS and
DANIPS are common services catering to the requirements of
Union Territories of Daman and Diu, Dadra and Nagar Haveli,
Andamans and Nicobar Islands, Lakshdweep including the
NCT of Delhi which is also administered by the Central
Government through the Ministry of Home Affairs. As such, it
is clear that the NCT of Delhi does not have its own Public
Services. Thus, "services" will fall under the qualified category
as contemplated in Article 239AA 3(a).
It is submitted that the Central Cadre derives its authority from
Entry 70 in List 1. Since admittedly there is no State Public
Services or State Public Services Commission insofar as the
NCT of Delhi is concerned, the petitioner cannot seek to
impugn the notification dated 21.05.2015 on the ground that
inclusion of "services" in the said notification is ultra vires the
Constitution of India."
155. The learned ASG has also drawn our attention to the express language
of clause (3)(a) of Article 239AA which qualifies the matters enumerated in
State List or in the Concurrent List "in so far as any such matter is applicable
to Union Territories".
156. It is relevant to note that there are only two Services under the
constitutional scheme. One is of the Union and the other is of each State.
These two subjects are expressly covered by two Entries in Schedule VII,
i.e. Entry 70 (Union Public Services; All India Services; Union Public
Service Commission) of List I and Entry 41 (State Public Services; State
Public Service Commission) of List II. There is no separate service cadre of
any Union Territory. The services of all Union Territories including NCT of
Delhi are services of the Union. Therefore, the services under NCT of Delhi
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are necessarily the services of the Union. It is evident from the Resolution
dated 27.05.2015 passed by the Legislative Assembly of NCTD (filed as
Annexure P-11 to W.P.(C) No.5888/2015) that there is no "public service"
for NCT of Delhi which fact also establishes that there is no separate service
cadre of NCT of Delhi.
157. It is also relevant to note that Part XIV of the Constitution deals with
"Services under the Union and the States". Article 309 in Part XIV provides
that Acts of the appropriate legislature may regulate the recruitment and
conditions of service of persons appointed to public services and posts in
connection with the affairs of the Union or of any State. Under Part XIV,
there is no separate category of services of Union Territory.
158. Hence, all services under NCT of Delhi which is a Union Territory are
governed by Entry 70 of List I alone and thus fall beyond the legislative
competence of Legislative Assembly of NCT of Delhi. The executive power
being co-extensive with the legislative power, it goes without saying that the
Government of NCT of Delhi cannot claim any executive power in relation
to matters with respect to "services".

Consequently, as provided under

Section 41 of the NCT of Delhi Act, 1991, 'services' is a matter in respect of

which the Lt. Governor is required to act in his discretion.
159. In this context we may also refer to the specific plea of Union of India
in its counter affidavit that the Union Territories Cadre consisting of Indian
Administrative Service and Indian Police Service personnel, which is
common

to

Delhi,

Chandigarh,

Andamans

and

Nicobar

Islands,

Lakshadweep, Daman & Diu, Dadra & Nagar Haveli, Puducherry,

Arunachal Pradesh, Goa and Mizoram is administered by the Central
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Government through the Ministry of Home Affairs and similarly, DANICS

and DANIPS are common services catering the requirements of all the
Union Territories including the NCT of Delhi and the same is also
administered by the Central Government through Ministry of Home Affairs
has not been contradicted by the petitioner/GNCTD.
160. It may also be added that Delhi-Andaman and Nicobar Island Civil
Service (DANICS) and Delhi-Andaman and Nicobar Island Police Service
(DANIPS) are admittedly relatable to Entry 70 of the Union List. It is the
specific case of the Union of India that GNCTD has no executive power for
creation of posts and/or upgradation of the pay of the employees of the
GNCTD and that the pay for the employees of GNCTD is recommended by
Central Pay Commission. It is also brought to our notice that as per Rule 7
of the Government of India (Allocation of Business) Rules, 1961 made by
the President in exercise of the powers conferred by clause (3) of Article 77
of the Constitution, the business in respect of the Union Territories including
National Capital Territory of Delhi has been allocated to the Ministry of
Home Affairs. It is also pointed out by the leaned ASG that as per Rule 7
read with Rule 2(d) of the Indian Administrative Service (Cadre) Rules,
1954 made by the Central Government under Section 3(1) of the All India
Services Act, 1951, all appointments to Joint Cadre shall be made by the
"Joint Cadre Authority" which has been constituted vide notification dated
25.04.1995 by the Ministry of Personnel, PG and Pensions, Government of
India and that as per the All India Services (Joint Cadre) Rules, 1972, the
Ministry of Home Affairs is the State with respect to the Union Territories
including Delhi.
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161. For the reasons stated supra, we are of the view that Entry 41 of State
List providing for "State Public Services" and "State Public Service
Commission" has no application to NCTD. Hence, there is no basis for the
claim of the petitioner/GNCTD that the Legislative Assembly of NCTD has
been conferred with the power to make laws in respect of "services" under
clause (3) of Article 239AA.
162. Once it is not covered by the subjects that fall within the legislative
competence of the Legislative Assembly of NCTD under clause (3) Article
239AA, we are unable to understand as to how the petitioner/GNCTD can
find fault with the impugned notification dated 21.05.2015 directing the
Lt.Governor, a delegatee of the President, to exercise the powers and
discharge the functions of the Central Government in respect of matters
connected with "services".
163. Hence, the impugned Notification dated 21.05.2015 directing that the
Lt. Governor shall in respect of matters connected with 'services' exercise
the powers and discharge the functions of the Central Government to the
extent delegated to him from time to time by the President cannot be held to
be illegal on any ground whatsoever.
Jurisdiction of ACB, GNCTD - Whether can be restricted only to the
officials of GNCTD?
164. Under the impugned notifications dated 23.07.2014 and 21.05.2015, it
was directed that the Anti-Corruption Branch Police Station which was
earlier declared as the police station for offences under the PC Act, 1988 and
the allied offences under Indian Penal Code, 1860 vide notification dated
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08.11.1993 shall not take cognizance of offences against the officers and
employees of the Central Government.
165. These two notifications are challenged by GNCTD/petitioner
primarily on two grounds, namely, (i) since the power of ACB is traceable to
Entries 1 and 2 of List III in respect of which the Legislative Assembly of
NCTD has power to make laws under Article 239AA(3), the executive
control remains with Government of NCT of Delhi only. Hence, the
Notifications are illegal and unconstitutional; (ii) the impugned notifications
which are aimed at creating a special class of offenders by providing that the
jurisdiction of ACB is extended only to the officers and employees of
GNCTD are arbitrary, illegal and violative of Articles 14 and 239AA of the
Constitution.
166. Section 2(s) of the Code of Criminal Procedure, 1973 defines 'Police
Station' as under:
"Any post or place declared generally or specially by the State
Government, to be a police station, and includes any local area
specified by the State Government in this behalf."
167. In exercise of the powers so conferred by Section 2(s) of Cr.P.C.
certain notifications were issued by the Administrator of Union Territory of
Delhi from time to time even before the insertion of Article 239AA by
Constitution (69th Amendment) Act, 1991 w.e.f. 01.02.1992.
notification

was

Notification

No.12(7)88-HP-II

dated

One such
01.08.1986

whereunder the Anti-Corruption Branch, Delhi Administration at Tis Hazari,

Delhi was declared to be Police Station for (i) offences relating to illegal
gratification under Sections 161, 162, 163, 164, 165 and 165-A, IPC; (ii)
offences under the Prevention of Corruption Act, 1947; and (iii) attempts,
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abatement and conspiracies in relation to or in connection with the aforesaid

offence and any other offence committed in the course of the same
transaction arising out of the same set of facts. The said notification was
issued by the Administrator of the Union Territory of Delhi in pursuance of
the powers delegated by the President vide notification dated 20.03.1974 in
terms of Clause (1) of Article 239 of the Constitution. The said notification
dated 20.03.1974 reads as under:"Ministry of Home Affairs
Notification
New Delhi, the 20th March, 1974
S.O.185(E) - In pursuance of clause (1) of Article 239 of the
Constitution and in supersession of all previous orders on the
subject, the President hereby directs that the Administrators of
all Union Territories other than Arunachal Pradesh and
Mizoram (whether known as Administrator, Chief
Commissioner or Lieutenant Governor) shall subject to the
control of the President and until further orders, exercise the
powers and discharge the functions under the Code of
Criminal Procedure, 1973 (2 of 1974) as mentioned in the
schedule hereto annexed, subject to the condition that the
Central Government may itself exercise all or any of those
powers and discharge all or any of those functions, should it
deem necessary to do so.
2.

This notification shall have effect from 1st April, 1974."

168. The notification dated 01.08.1986 issued by the Administrator of

Union Territory of Delhi may also be reproduced hereunder:"DELHI ADMINISTRATION, DELHI
HOME (POLICE-II) DEPARTMENT.
Dated 01.08.1986
NOTIFICATION
No.12(7)88-H.P.-II - In supersession of this Administrator's
Notification No.F.3(25)/74-Home (P.II) dated 20.5.75 and in
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exercise of the powers conferred by Section 2(s) of the Code of

Criminal Procedure Code, 1973, (No.II of 1974) read with the
Government of India, Ministry of Home Affairs Notification NO.U11011/2/74-UTL(i) dated 20th March, 1974 the Administrator of the
Union Territory of Delhi hereby declares that Anti - Corruption
Branch, Delhi Administration, at Tis Hazari, Delhi to be Police
Station for:(i)
offences relating to illegal gratification under Section
161, 162, 163, 164, 165, 165-A IPC
(ii)
Offences under the Prevention of Corruption Act, 1947
and
(iii) Attempts, abetment and conspiracies in relation to or in
connection with the aforesaid offence and any other
offence committed in the course of the same
transaction arising out of the same set of facts.
and shall have jurisdiction all over the whole of the
Union Territory of Delhi."

169. With effect from 09.09.1988, the Prevention of Corruption Act, 1988
has come into force thereby repealing the Prevention of Corruption Act,
1947 and the Criminal Law Amendment Act, 1952. By virtue of the said
Act of 1988, Sections 161 to 165-A of IPC also stood omitted.
170. Consequent thereto, vide Notification dated 08.11.1993 issued by the
Lt. Governor of NCT of Delhi in exercise of the powers conferred by
Section 2(s) of the Code of Criminal Procedure, 1973, the earlier notification
under

Section

2(s)

dated

01.08.1986

was

superseded

and

the

Anti-Corruption Branch of NCT of Delhi, Delhi Police Station was declared

to be the Police Station for offences under the Prevention of Corruption Act,
1988 and that it shall have jurisdiction all over the National Capital Territory
of Delhi. The notification dated 08.11.1993 reads as under:"NOTIFICATION
DELHI, THE 8TH NOVEMBER, 1993
No.F.1(21)/93-Home (P)/Estt./1751 - In supersession of this
Govt. Notification No.F.12(7)/86-HP-II dated 1.8.86 and in
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exercise of the powers conferred by Section 2(s) of the Code of

Criminal Procedure Code, 1973 (No.II of 1974) read with the
Government of India, Ministry of Home Affairs Notification
No.-11011/2/74-UTL(i) dated 20.3.74, Lt. Governor of National
Capital Territory of Delhi hereby declares that Anti-Corruption
Branch of NCT of Delhi at Old Secretariat, Delhi Police Station
for:(i)
offence under the Prevention of Corruption Act
(No.49), 1988 and;
(ii) Attempts, abetment and conspiracies in relation to
or in connection with the above said offence and
any other offence committed in the course of the
same transaction arising out of the same set of
facts.
It shall have jurisdiction all over the National Capital Territory
of Delhi."
171. Thereafter, in pursuance of the powers conferred under Article 239(1)
of the Constitution, the President has also issued another Notification dated
24.09.1998 empowering the Lt. Governor of NCTD to exercise the powers
and discharge the functions of the Central Government in respect of matters
connected with public order, police and services. The said Notification
reads as under:
"MINISTRY OF HOME AFFAIRS
NOTIFICATION
New Delhi, the 24th September, 1998
S.O.853(E) - In pursuance of the powers conferred under clause
(1) of Article 239 of the Constitution, the President hereby
directs that subject to his control and until further orders, the
Lieutenant Governor of the National Capital Territory of Delhi,
shall in respect of matters connected with 'Public Order', 'Police'
and 'Services' exercise the powers and discharge the functions
of the Central Government, to the extent delegated from time to
time to him by the President, in consultation with the Chief
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Minister of the National Capital Territory of Delhi except in

those cases where, for reasons to be recorded in writing, he does
not consider it expedient to do so."
172. The above-mentioned Notification dated 08.11.1993 has been further
amended by Notification dated 23.07.2014, which is one of the impugned
Notifications in this petition.

The said Notification dated 23.07.2014 may

again be reproduced hereunder for ready reference:

"S.O.1896(E) - In pursuance of Section 21 of the General
Clauses Act, 1897 (10 of 1897) read with the Government of
India, Ministry of Home Affairs Notification Number S.O.
183(E), dated the 20th March, 1974 and having regard to the
guidelines issued by the Central Vigilance Commission over the
jurisdiction of the Central Bureau of Investigation and the AntiCorruption Branch, Government of National Capital Territory of
Delhi, the Central Government hereby declares that the
notification number F.1/21/92-Home (P) Estt.1750, dated the 8th
November, 1993 issued by the Lieutenant Governor of the
National Capital Territory of Delhi shall be applicable to the
officers and employees of that Government only and for that
purpose amends the said notification, namely:In the said notification, after the existing paragraph, the
following paragraph shall be inserted, namely:"2. This notification shall apply to the officers and
employees of the Government of National Capital Territory
of Delhi".
(emphasis supplied)
173. This has again been re-stated in the Notification dated 21.05.2015 as
under:
"2. In the Notification number F. 1/21/92-Home (P) Estt. 1750
dated 8th November, 1993, as amended vide notification dated
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23rd July, 2014 bearing No. 14036/4/2014-Delhi-I (Pt. File), for

paragraph 2 the following paragraph shall be substituted,
namely:
2. This notification shall only apply to officials and employees
of the National Capital Territory of Delhi subject to the
provisions contained in the article 239AA of the Constitution.
after paragraph 2 the following paragraph shall be inserted,
namely:
3. The Anti-Corruption Branch Police Station shall not take any
cognizance of offences against Officers, employees and
functionaries of the Central Government.
174. As could be seen, by the impugned Notification dated 23.07.2014
there was a declaration to the effect that the earlier notification dated
08.11.1993 declaring the Anti-Corruption Branch of NCTD as Police Station
for offences under the Prevention of Corruption Act, 1988 shall apply only
to officers and employees of the Govt. of National Capital Territory of
Delhi. By the other notification dated 21.05.2015 it was directed that the
Anti-Corruption Branch Police Station shall not take any cognizance of
offences against officers, employees and functionaries of the Central
Government.
175. This has been impugned in the present petition contending inter alia:
(i)

that the executive power of GNCTD extends to implementation

of "criminal law" as provided by Entry-1, List-III of Schedule-7 and

it includes all matters in IPC at the commencement of Constitution.
That apart, by virtue of Entry-2 of List-III, the executive power of
GNCTD includes enforcement of Criminal Procedure Code also;

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(ii)

that the supersession of the notification dated 24.09.1998 is

violative of the basic structure of the Constitution since the devolution

of powers is an irreversible process and cannot be undone whimsically
or capriciously;
(iii)

that even otherwise as per clause (7) of Article 239AA, the

Parliament alone can make law for giving effect to the provisions of
Article 239AA or for supplementing the same.
cannot be

Hence, the same

done by a mere notification issued by the Central

Government;
(iv)

that since the power of ACB is traceable to Entries-1 and 2 of

List-III, the impugned notification to the extent it seeks to restrict the

powers of ACB by creating exclusive class of officers in respect of
whom ACB is sought to be denuded of powers is ultra vires the
Constitution;
(v)

that the notification having deprived the democratically elected

Government of power to assign duties and control the bureaucrats has

adversely affected

the

Parliamentary

governance

as

also

administration;
176. On the other hand, it is contended on behalf of the Union of India that:
a)

though it is true that the office of ACB has been declared as

police station with jurisdiction throughout the NCT of Delhi, under

the existing constitutional scheme, 'Police' is outside the purview of
the Legislative Assembly of the NCTD and consequently ACB which
has been designated as a Police Station is also outside the executive
control of NCTD.
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b)

the mere fact that 'Anti-Corruption Branch' has been figured

under the heading 'vigilance department' in the Allocation of Business

Rules of Delhi, the same cannot be a ground to hold that the executive
control remains with NCT of Delhi since the same would be contrary
to the constitutional scheme.
c)

It is clear from the language of Rule 3 of Allocation of Business

Rules, 1993 that the allocation of departments as specified in the

Schedule to the said Rules and the requirement that the Lt. Governor
shall, in consultation with the Chief Minister, allocate the business of
the Ministers of GNCTD is only in respect of the matters with respect
to which the Council of Ministers is required under Article 239AA of
the Constitution to aid and advice the Lt. Governor in the exercise of
his functions.
d)

Since functioning of police is specifically excluded from

clause (3) of Article 239AA, mere mention of ACB under the heading
'vigilance department' in the Allocation of Business Rules, 1993 is of
no consequence.
e)

It is also evident from Rule 15 of the Rules and Procedure of

Enquiry for the ACB, 1977 that the jurisdiction of ACB is limited to
curbing corruption in various departments of the Delhi Administration
and statutory bodies over which the Lt. Governor exercises control.
Such power to take cognizance of offences committed within the limit
of the Union Territory of Delhi under the Prevention of Corruption
Act or allied offences under IPC would not expand the jurisdiction of
ACB to the officials of Central Government.

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f)

Reliance has been placed upon Chapter - I of CBI (Crime)

Manual, 2005 - Para-1.10 which has enumerated the special

circumstances under which ACB may initiate complaints against
Central Government employees to substantiate the contention that the
jurisdiction of ACB is limited in nature.
177. As noticed above, the petitioner/GNCTD seeks to trace the executive
power in respect of ACB as a corollary to the legislative competence
conferred on the Legislative Assembly of NCTD under Article 239(3)(a) of
the Constitution with respect to the matters enumerated in Entry II (Criminal
Law) and Entry II (Criminal Procedure) of the Concurrent List.
To substantiate the same, reliance has been placed upon A.C. Sharma vs.
Delhi Administration; (1973) 1 SCC 726.
178. On the other hand, the contention on behalf of Union of India is that
ACB of GNCTD having been designated as a police station is outside the
legislative and executive control of NCTD since the matters relating to
'Police' covered by Entry 2 of List II are outside the purview of Legislative
Assembly of NCTD under clause (3) of Article 239AA.
179. The power to declare a post or place to be a police station and to
specify the local area in that behalf under Section 2(s) of Cr.PC is the
executive power conferred on the State Government. Admittedly, Delhi is
not a State but a Union Territory. Even after insertion of Article 239AA
making special provisions with respect to Delhi and providing a Legislative
Assembly to make laws for the NCTD, Delhi continues to be Union
Territory. The fact that the Central Government continues to retain its
primacy in administering the affairs of NCTD is evident from the opening
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words of Clause (3) of Article 239-AA "subject to the provisions of the

Constitution". The expression "subject to" conveys the idea of a provision
yielding place to another provision to which it is made subject to. It may
also mean conditional upon. Any provision subject to another provision is
understood to incorporate the other provision and to exclude matters which
fall under the said provision and to expand or provide for matters in addition
to what is found in the said provision. Hence, a provision subject to the
other provisions of any Act or law necessitates the combined reading of such
provisions. This legal position with regard to administration of NCT of
Delhi is also apparent from the following:
"(a) Entries 1, 2 and 18 of the State List and Entries 64, 65
and 66 of that List in so far as they relate to Entries 1, 2 and 18
are specifically within the domain of the Central Government in
terms of Article 239AA(3)(a);
(b) That Article 239AA(3)(b) provides that nothing
contained in clause (3)(a) of Article 239AA shall derogate from
the powers of the Parliament to make laws with respect to any
matter for a Union Territory or part thereof;
(c) The Legislative Assembly cannot pass any law repugnant
to the provisions of a law made by the Parliament;
(d) The Parliament is also empowered for enacting at any
time in law with respect to the same matter, including a law
adding to, amending, varying or repealing the law so made by
the Legislative Assembly; and
(e) Even with respect to subjects where the Legislative
Assembly is competent to legislate, in case of a difference of
opinion between the LG and the Council of Ministers, the LG
has to refer the same to the President of India; who, in turn, acts
on the aid and advice of the Union Council of Ministers."

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180. Prior to insertion of Article 239AA, the Administrators of all Union

Territories including Delhi were directed to exercise the powers and
discharge the functions under Criminal Procedure Code vide Notification
dated 20.03.1974 issued under Article 239(1) of the Constitution.
In pursuance thereof, vide Notification dated 01.08.1986, the Administrator
of Union Territory of Delhi, in exercise of the powers conferred under
Section 2(s) of Cr.P.C., declared ACB, Delhi Administration to be a police
station for the offences under the Prevention of Corruption Act, 1947 and
that it shall have jurisdiction all over the Union Territory of Delhi.
The same has been reiterated vide Notification dated 08.11.1993 in view of
repeal of 1947 Act and enactment of the Prevention of Corruption Act, 1988.
Be it noted that the said Notification dated 08.11.1993 was issued by the
Lt. Governor of NCTD after insertion of Article 239AA exercising the
powers under Section 2(s) Cr.P.C. read with the Notification dated
20.03.1974 under which the Administrators of all Union Territories were
empowered to exercise the functions under the Criminal Procedure Code.
181. As noticed earlier, by the impugned notifications dated 23.07.2014
and 21.05.2015, it was clarified that the said Notification dated 08.11.1993
shall apply to officers and employees of GNCTD only and that ACB of
GNCTD shall not take cognizance of offences against officers and
employees of the Central Government. It is pertinent to note that these two
Notifications were issued by the Government of India, Ministry of Home
Affairs since such power has been expressly retained by the Central
Government in the Notification dated 20.03.1974 itself.
182. The specific case of the petitioner/GNCTD is that after insertion of
Article 239AA providing for Legislative Assembly for NCTD, such power is
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not available to the Central Government merely on the ground that NCTD is
a Union Territory. It is contended that the exercise of executive control over
ACB of GNCTD after insertion of Article 239AA shall be with Govt. of
NCT of Delhi only as per the constitutional scheme.
183. It is contended by Shri Dayan Krishnan, the learned Senior Counsel
for the petitioner/GNCTD that the power to deal with the offences under the
Prevention of Corruption Act, 1988 which initially formed part of IPC
(Sections 161 to 165A) is relatable to Entries 1 and 2 of List III (Concurrent
List) in respect of which the Legislative Assembly of NCTD has power to
make laws and consequently the executive power of GNCTD acting through
ACB extends to enforce criminal law including the offences under the
Prevention of Corruption Act within NCTD. Entries 1 and 2 of List III upon
which the learned Senior Counsel has placed reliance read as under:
"Entry 1. Criminal Law, including all matters included in
the Indian Penal Code at the commencement of this
Constitution but excluding offences against laws with
respect to any of the matters specified in List I or List II
and excluding the use of naval, military or air forces or
any other armed forces of the Union in aid of the civil
power.
Entry 2. Criminal procedure, including all matters
included in the Code of Criminal Procedure at the
commencement of this Constitution."
184. Contradicting the plea of the Union of India that the power to deal
with ACB is traceable to Entry 2 (Police) of List II, it is contended by
Shri Dayan Krishnan that an offence under the Prevention of Corruption Act
has no bearing on Entry 2 (Police) of List II. It is also submitted that the
investigation and prosecution of an offence under the Prevention of
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Corruption Act are referable only to Entry 1 (Criminal Law) of List III.
In support of his submission, he placed much reliance upon the decision of
the Supreme Court in A.C. Sharma v. Delhi Administration (supra) and a
judgment of this Court in Bail Application No.8 of 2015 dated 25.05.2015
titled Anil Kumar v. GNCT of Delhi.
185. In A.C. Sharma v. Delhi Administration (supra), the appellant who
was an employee of CPWD was convicted under Section 5(2) of the
Prevention of Corruption Act.

In the appeal against conviction, he

questioned the validity of the investigation by the Anti-Corruption

Department of Delhi Administration on the ground that the offences against
a Central Government employee could be investigated by the Special Police
Establishment set up under Delhi Special Police Establishment Act, 1946
only. In the said factual matrix, the following question was formulated in
para 6 for consideration:
"6. The short but important question with far-reaching
effect, if the appellant's contention were to prevail,
requiring our decision is, whether with the setting up of
the Delhi Special Police Establishment, the AntiCorruption Branch of the Delhi Police had been
completely deprived of its power to investigate into the
offences like the present or whether both the SPE and the
Anti-Corruption Branch had power to investigate, it
being a matter of internal administrative arrangement for
the appropriate authorities to regulate the assignment of
investigation of cases according to the exigencies of the
situation."
186. The question was answered in para 13 as under:
"13. .. The scheme of this Act does not either
expressly or by necessary implication divest the regular police
authorities of their jurisdiction, powers and competence to
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investigate into offences under any other competent law. As a

general rule, it would require clear and express language to
effectively exclude as a matter of law the power of investigation
of all the offences mentioned in this notification from the
jurisdiction and competence of the regular police authorities
conferred on them by Cr.P.C. and other laws and to vest this
power exclusively in the D.S.P.E. The D.S.P.E. Act seems to
be only permissive or empowering, intended merely to enable
the D.S.P.E. also to investigate into the offences specified as
contemplated by Section 3 without imparting any other law
empowering the regular police authorities to investigate
offences."
187. As could be seen, it was held in A.C. Sharma v. Delhi Administration
(supra) that the provisions of Delhi Special Police Establishment Act, 1946
and the Prevention of Corruption Act, 1947 are intended to serve as
supplementary provisions of law designed to function harmoniously in aid of
each other and of the existing regular police investigating agencies for
effectively achieving the object of successful investigation into the serious
offences mentioned under Section 5A of the Prevention of Corruption Act,
1947.

Thus, it was opined that the Special Police Enforcement would

investigate into the offences as contemplated by Section 3 of Delhi Special

Police Establishment Act, 1946 without imparting any other law
empowering the regular police authorities to investigate offences.
188. The ratio laid down in A.C. Sharma v. Delhi Administration (supra),
in our considered opinion, has no relevance for deciding the issues involved
in the case on hand since it is not the case of the Union of India that ACB is
not competent to investigate the offences against the officers/employees of
the Central Government.

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189. Anil Kumar v. GNCT of Delhi (supra) was decided by a learned

Single Judge of this Court while considering the contention on behalf of the
applicant in a Bail Application that ACB of GNCTD is incompetent to
investigate the offence and to prosecute the applicant since he is not an
employee or functionary of Government of NCT of Delhi. The applicant
therein placed reliance on the Notifications dated 23.07.2014 and 21.05.2015
(notifications impugned in the petition before us). It was also contended that
the investigation and prosecution of an offence under the Prevention of
Corruption Act, 1947 are traceable to Entry 1 of List II, which is specifically
excluded from the legislative competence of the Legislative Assembly of
NCTD and as a corollary, no executive control can be exercised by the ACB
of GNCTD. Rejecting the said contention the learned Single Judge held:
"65. Thus, it appears to me, that the Union Government
could not have issued the notification dated 23.07.2014
thereby seeking to restrict the executive authority of the
GNCTD acting through its ACB to act on complaints
under the PC Act only in respect of officers and
employees of the GNCTD. By an executive fiat, the
Union Government could not have exercised the
executive power in respect of a matter falling within the
legislative competence of the Legislative Assembly of the
NCT, since the law made by Parliament, namely the
GNCTD Act read with Article 239 AA put fetters on the
executive authority of the President.
66. After the judgment was reserved in the present
application, the Ministry of Home Affairs has issued a
notification bearing No. SO 1368(E) on 21.05.2015
thereby further amending the notification dated
08.11.1993 and, inter alia, providing that ACB police
station shall not take any cognizance of the offences
against officers, employees and functionaries of the
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Central Government. In my view, since the Union lacks

the executive authority to act in respect of matters dealt
with in Entries 1 & 2 of List III of the Seventh Schedule,
the further executive fiat issued by the Union
Government on 21.05.2015 is also suspect.
67. In the light of the aforesaid discussion, the
submission of the applicant that the ACB of the GNCTD
does not have the competence or jurisdiction to act on the
complaint of the complainant is rejected. Since the
applicant is a Delhi Police personnel serving the citizens
in the NCTD and the functions of the Delhi Police
personnel substantially and essentially relate to the affairs
of the GNCTD, in my view, the ACB of the GNCTD has
the jurisdiction to entertain and act on a complaint under
the PC Act in respect of a Delhi Police officer or official,
and to investigate and prosecute the crime. This would
also be in consonance with the guidelines issued by the
CVC as contained in para 1.5.2(b) set out herein above."
190. It is relevant to note that against the order in Anil Kumar v. GNCT of
Delhi (supra), the Union of India preferred an appeal in the Supreme Court
in which by order dated 29.05.2015, while granting leave, it was ordered as
under:
"However, insofar as observations made in para 66 are
concerned, we find that they pertain to Notification
bearing No.1368(E) issued on 21.5.2015 which was
issued after the judgment was reserved by the High
Court. Neither the Union of India was party who had
issued this Notification nor was there any occasion to any
hearing on the said Notification. We are also informed
that this Notification has been challenged by the
respondent No.1 by filing the Writ Petition in the High
Court under Art. 226 of the Constitution.

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We, therefore, clarify that the observations made

therein were only tentative in nature without
expressing any opinion on the validity of Notification
dated 21.5.2015 and it would be open to the High
Court to deal with the said petition independently
without being influenced by any observations made in
para 66, or for that matter in other paragraphs of the
impugned order."
(emphasis supplied)
191. Thus, it is clear that Anil Kumar v. GNCT of Delhi (supra) cannot be
treated as a precedent. At any rate, in the light of the above order it is open
to this Court to examine independently as to whether the challenge to the
impugned Notifications has been substantiated by the petitioner/GNCTD.
192. As already noticed, the GNCTD has executive control in terms of
Article 239AA(4) in relation to those matters with respect to which the
Legislative Assembly of NCTD has the power to make laws under Article
239AA(3) of Constitution.
193. It is sought to be contended by the petitioner/GNCTD that the power
of ACB is traceable to Entries 1 and 2 of List III and, therefore, the
impugned Notifications to the extent they seek to restrict the powers of ACB
by excluding the employees and officers of the Central Government from the
purview of ACB is ultra vires the Constitution. However, the Union of India
would contend that the impugned Notifications are traceable to Entry 2
(Police) of List II which has been expressly excluded from the legislative
competence of the Legislative Assembly of NCTD and consequently, no
executive control can be claimed by the GNCTD.
194. We have already extracted in Para 183 what has been covered by
Entry 1 and Entry 2 of List III (Criminal Law and Criminal Procedure).
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195. Coming to Entry 2 of List-II i.e. "police" it reads:

"2. Police (including railway and village police) subject to the
provisions of entry 2A of List I."
196. The law is well settled that the three Lists in the Seventh Schedule to
the Constitution are field of legislation and demarcate the legislative fields
of the respective legislatures and do not confer legislative power as such.
It has been explained in Welfare Association v. Ranjit P. Gohil; (2003) 9
SCC 358:
"28. ..The function of the three lists in the Seventh
Schedule is merely to demarcate legislative fields between
Parliament and States and not to confer any legislative power.
The several entries mentioned in the three lists are fields of
legislation. The Constitution-makers purposely used general
and comprehensive words having a wide import without trying
to particularize. Such construction should be placed on the
entries in the lists as makes them effective; any construction
which will result in any of the entries being rendered futile or
otiose must be avoided. That interpretation has invariably been
countenanced by the constitutional jurists, which gives the
words used in every entry the widest-possible amplitude. Each
general word employed in the entries has been held to carry an
extended meaning so as to comprehend all ancillary and
subsidiary matters within the meaning of the entry so long as it
can be fairly accommodated subject to an overall limitation that
the courts cannot extend the field of an entry to such an extent
as to result in inclusion of such matters as the framers of the
Constitution never intended to be included within the scope of
the entry or so as to transgress into the field of another entry
placed in another list.
29. In every case where the legislative competence of a
legislature in regard to a particular enactment is challenged with
reference to the entries in the various lists, it is necessary to
examine the pith and substance of the Act and to find out if the
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matter comes substantially within an item in the list. The

express words employed in an entry would necessarily include
incidental and ancillary matters so as to make the legislation
effective. The scheme of the Act under scrutiny, its object and
purpose, its true nature and character and the pith and substance
of the legislation are to be focused at. It is a fundamental
principle of constitutional law that everything necessary to the
exercise of a power is included in the grant of the power."
197. The Black's Law Dictionary defines the word 'police' as under:"the governmental department charged with the preservation of
public order, the promotion of public safety, and the prevention
and detection of crime."
198. Similarly, the words 'criminal law' and 'criminal procedure' have been
defined in the Black's Law Dictionary as under:criminal law - "the body of law defining offences against the
community at large, regulating how suspects are investigated,
charged and tried and establishing punishments for convicted
offenders".
criminal procedure - "the rules governing the mechanisms under
which crimes are investigated, prosecuted, adjudicated and
punished. It includes the protection of accused person's
constitutional rights".
199. The interpretation of the "Criminal Law" covered by Entry 1 of List
III fell for consideration in Kartar Singh vs. State of Punjab; (1994) 3 SCC
569. While observing that Entry 1 of List III is couched in very wide terms,
it is further explained:
"445. .. A legislation by Union Parliament to be
valid under this entry must satisfy two requirements; one, that it
must relate to criminal law and the offence should not be such

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as has been or could be provided against laws with respect to

any of the matters specified in List II..."
200. However, having given our thoughtful consideration to the
controversy involved in the present case, we are unable to hold that the
impugned notifications have been issued by the Central Government in
exercise of the power traceable to Entry 1 (Criminal Law) of List III.
201. Admittedly, the directions under the impugned notifications have been
issued in accordance with the provisions contained in Article 239 and Article
239AA(3)(a) of the Constitution by the President. One of the directions,
under challenge in this petition, is that "the Anti-Corruption Branch Police
Station shall not take any cognizance of offences against officers, employees
and functionaries of the Central Government". It is apparent that it is a
direction to the Police Station but not a declaration under Section 2(s) of
Cr.P.C. Both the Notifications have been issued by the Ministry of Home
Affairs (MHA), Union of India and as we could see the purport of both the
Notifications is a simple direction to ACB Police Station that it shall not take
cognizance of offences against the officers/employees of the Central
Government. The said direction having been issued to a Police Station with
regard to its functioning, we find force in the submission of the learned ASG
that the power to issue the same is traceable to Entry 2 (Police) of List II.
Since the said entry has been expressly exempted from the legislative
competence of the Legislative Assembly of NCTD under Article
239AA(3)(a) of the Constitution, MHA is well within its power to issue such
direction.
202. In fact, the Rules and Procedure of Inquiry for ACB dated 17.02.1977
make it clear that the power to initiate action against officers of the Central
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Government has not been conferred upon the ACB. In terms of the powers
delegated under the Notification dated 20.03.1974, the Administrator of
Delhi notified the said Rules dated 17.02.1977 called Rules for the
Anti-Corruption Branch of Delhi Administration. The said Rules which
prescribed the procedure for inquiries and investigation by the
Anti-Corruption Branch, Delhi, clearly spelt out the jurisdiction of the ACB
as under:
"1. The jurisdiction of the Anti-Corruption Branch of Delhi
Administration extends throughout the Union Territory of
Delhi. The Anti-Corruption Branch is primarily concerned with
the prevalence of Corruption and abuse of official authority
amongst the officials of the various departments of Delhi
Administrator as well as other statutory bodies over which the
Lt. Governor (Administrator) exercises control. The function of
the Anti-Corruption Branch do not take away the jurisdiction or
the responsibility of the Delhi Police in this respect. However,
the Anti-Corruption Branch has been placed under the
Administrative Control of the Vigilance Secretary to the Delhi
Administration with a view to achieve more objectively and
better coordination as the work of the Anti-Corruption Branch
involves employees of various departments.
The AntiCorruption Branch can however take cognizance of any offence
committed within the limits of Union Territory of Delhi under
the P.O.C. Act or allied offences under the IPC.
2.
The officers posted in the Anti-Corruption Branch
exercise police powers and as such all the rules and
regulations applicable to the Delhi Police are also applicable
to the Anti-Corruption Branch."
(emphasis supplied)
203. Rule 3(c) of the said Rules makes it clear that the Anti-Corruption
Branch conducts inquiries and investigation into the categories of offences

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specified therein and that it will not undertake to conduct departmental

inquiries against employees of other Departments. Rule 15 further provides
that ordinarily no inquiries should be made by ACB into the allegations
relating to Central Government servants or private individuals, except for
special reasons.
204. We also found force in the submission of the learned ASG, on the
basis of para 1.10 and para 1.11 of CBI (Crime) Manual, 2005, that the
jurisdiction of ACB to proceed against the employees/officers of the Central
Government is limited in nature.
205. Thus, it is evident that the jurisdiction of ACB is limited to curbing
corruption in various departments of the Delhi Administration as well as
other statutory bodies over which the Lt. Governor exercises control. In
other words, the officers and employees of the Central Government have not
been brought within the purview of ACB, GNCTD. The mere fact that
under the Notifications dated 01.08.1986 and 08.11.1993, it was declared
that ACB can take cognizance of the offences committed within the limits of
the NCTD does not amount to expanding the jurisdiction of ACB to proceed
against the officers/employees of the Central Government.
206. For the aforesaid reasons, we are of the opinion that the impugned
Notifications dated 23.07.2014 and 21.05.2015 have merely reiterated what
has been provided under the Rules for the Anti-Corruption Branch of Delhi
Administration dated 17.02.1977.
207. Hence, the contention that the directions issued under the
Notifications are in relation to or traceable to the exercise of powers under
Entry 1 (Criminal Law) of List III is untenable.

According to us, the

argument of encroachment upon the legislative competence can be sustained

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when the legislation in question deals with the same matter and not with
distinct and separate matter though of a cognate and allied character. In the
facts and circumstances of the case on hand, we are clear in our mind that
the directions under the impugned Notifications are only relatable to the
power traceable to 'Police' covered by Entry 2 of List II in respect of which
the Legislative Assembly of NCTD has no power to make laws and as a
corollary GNCTD cannot exercise executive control.
208. Accordingly, we hold that the direction in the impugned Notifications
that ACB Police Station shall not take cognizance of offences against the
officers and employees of the Central Government is neither illegal nor
unconstitutional.
W.P.(C) No.7887/2015 (Rajendar Prashad Vs. Govt. of NCT of Delhi)
W.P.(C) No.8382/2015 (M.A.Usmani Vs. Union of India & Ors.)
W.P.(C) No.8867/2015 (Union of India & Anr. Vs. Govt. of NCT of Delhi & Anr.)
209. Notification No.F.5/DUV/Tpt./4/7/2015/9386-9393 dated 11.08.2015
issued by the Directorate of Vigilance, GNCTD is under challenge in all
these writ petitions. Hence, we proceed to consider all the three petitions
together.
210. The impugned Notification has been issued by the Government of
NCT of Delhi in exercise of the powers conferred by Section 3 of the
Commission of Inquiry Act, 1952 thereby appointing the Commission of
Inquiry consisting of Justice S.N. Aggarwal, retired Judge of High Court for
inquiring into all aspects of the award of work related to grant of CNG

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Fitness Certificates in the Transport Department, GNCTD and subsequent

investigations and developments in the case.
211. The petitioner in W.P.(C) No.7887/2015, Mr.Rajendar Prashad,
claims to have worked in the Transport Department of Government of
NCTD. Similarly, the petitioner in W.P.(C) No.8382/2015, Mr.M.A.Usmani,
claims to be an erstwhile officer of DANICS cadre who had worked as
Deputy Commissioner, Transport during 2007 and retired from service on
31.12.2009.
212. W.P.(C) No.8867/2015 has been filed by the Union of India, Ministry
of Home Affairs which claims to be the "appropriate Government" under
Section 2(a) of the Commission of Inquiry Act, 1952. Apart from the
notification dated 11.08.2015 the consequential orders passed by GNCTD
dated 22.08.2015 and 24.08.2015 have also been challenged
W.P.(C) No.8867/2015.
213. The impugned notification dated 11.08.2015 reads as under:
" No.F.5/DOV/Tpt./4/7/2015/9386-9393

Dated:11/08/2015

NOTIFICATION
Whereas, the Government of NCT of Delhi has decided
to constitute an Independent Commission of Inquiry under the
Commissions of Inquiry Act, 1952 for inquiring into all aspects
of the award of work related to CNG Fitness Certificate(s) in
the Transport Department, Govt. of NCT of Delhi and
subsequent investigations and developments in the case.
Now, therefore, in exercise of the powers conferred by
Section-3 of the Commissions of Inquiry Act, 1952, the
Government of NCT of Delhi hereby appoints the Commission
of Inquiry consisting of Justice S.N.Aggarwal, Retired Judge,
Delhi and Madhya Pradesh High Court.
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i)

ii)
iii)

iv)

v)
vi)
vii)

The terms of reference of the Commission shall be as

under:To look into all aspects of the award of contract by the
Transport Department, Govt. of NCT of Delhi for inspection
and certification of commercial vehicles for fitness to M/s ESP
India Pvt. Ltd. and to point out irregularities, if any.
To identify the persons responsible for the irregularities
identified.
To look into the circumstances surrounding denial of
prosecution sanction against persons responsible for the
irregularities, if it is now found that the case for prosecution is
actually made out against them.
To recommend action against the persons responsible for these
irregularities, if any, and to suggest future course of action in
this case.
To suggest remedial action at institutional level to avoid such
irregularities, if any, in future.
To suggest measures for recovery of amount illegally accrued
by the vendor by way of this contract, if any.
Any other matter that may be referred to the Commission.
Having regard to the nature of inquiry to be made by the
Commission and other circumstances of the case, all the
provisions of sub-section-2, sub-section-3, sub-section-4, subsection-5 and sub-section-5A of section-5 of the said
Commissions of Inquiry Act, 1952 shall be applicable to the
Commission, and the Govt. of NCT of Delhi in exercise of the
powers conferred under sub-section-1 of section-5 of the
Commissions of Inquiry Act, 1952 hereby directs that all
provisions of sub-sections-2,3,4,5 and 5A of that section shall
apply to the Commission.
The Commission shall submit its report as soon as
possible but not later than three months from the date of its first
sitting.
Sd/K.S.Meena
Dy.Secretary, Vigilance"

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214. The contention in all the three writ petitions is that the impugned
notification passed by the GNCTD through Directorate of Vigilance without
seeking approval of the Lt. Governor of NCTD is without jurisdiction,
arbitrary and unconstitutional.
215. The material available on record shows that FIR No.21/2012 dated
17.12.2012 was registered by the Anti-Corruption Branch, GNCTD under
Section 13 of the Prevention of Corruption Act, 1988 read with
Sections 409, 420, 120B and 34 of Indian Penal Code, 1860 alleging
cheating, criminal breach of trust, fraud, embezzlement of government
funds, corruption etc. in allotment of contract of I&C test for commercial
vehicles for grant of fitness certificate and related issues. Apart from the
company to which the contract was granted, some of the officials of the
Transport Department, GNCTD were also named as accused. The petitioner
in W.P.(C) No.8867/2015 is a person named in the said FIR and he was
arrested and was in custody for 58 days.

After investigation, it was

concluded by the ACB that there was evidence against the officials of the
Transport Department and sanction was sought for prosecution of the erring
officials named therein.

Permission was also sought to examine the

Chief Secretaries at the relevant point of time. However, sanction was

declined by the Lt. Governor holding that no case was made out against any
of the officers. Similarly, the permission to examine the Chief Secretaries
was also rejected.
216. On 07.01.2014, PE-03(A)/2014/CBI/ACB/DLI was registered with
CBI against unknown officials of GNCTD on the basis of source
information alleging that the sanction for prosecution sought by ACB,
GNCTD in a criminal case through Directorate of Vigilance of GNCTD was
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declined on the basis of certain fake and fabricated documents purportedly

sent by one of the accused directly to the Directorate of Vigilance without
knowledge of the investigating agency of GNCTD. After due inquiry, CBI
found that there were certain lapses/irregularities on the part of the then
Chief Secretary/CVO, Director (Vigilance) and Additional Secretary
(Vigilance) and accordingly, a Note was sent to the Ministry of Home
Affairs, Government of India for taking appropriate action against the three
officials. That apart, by letter dated 06.09.2014, the Director (Vigilance)
was also requested to direct the ACB of GNCTD to look into the issue as to
any offence punishable under Section 218 of Indian Penal Code, 1860 had
also been made out.
217. While the issue was pending before the Ministry of Home Affairs,
Central Government a resolution was passed by the Cabinet of Government
of NCT of Delhi on 11.08.2015 to appoint a Commission of Inquiry to
inquire into all aspects of award of work related to CNG fitness certificates
in the Transport Department, GNCTD. A Notification to that effect was
issued on 11.08.2015 itself.
Cabinet

was

not

However, admittedly the decision of the

communicated

to

the

Lt.

Governor

and

his

views/concurrence was not obtained before issuing the impugned

notification.
218. The contention of the petitioners is that having regard to the fact that
the Lt. Governor had earlier refused sanction for prosecuting the officials
named in the report of ACB, the issue cannot be re-opened and the
Commission of Inquiry cannot be appointed without placing the decision of
the Cabinet

before the Lt. Governor and

without seeking

his

views/concurrence. Thus, it is contended that the impugned Notification is

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without jurisdiction, apart from being in violation of the provisions of clause

(4) of Article 239AA of the Constitution.
219. The petitions are contested by the GNCTD/respondent contending that
the prior approval of Lt. Governor is not required since the appointment of
Commission of Inquiry does not fall within the ambit of the three reserved
subjects under Article 239AA(3)(a) nor within the scope of the matters in
respect of which Lt. Governor has been given discretion under Section 41 of
the GNCTD Act, 1991.
220. It is also contended by GNCTD that as per Rule 23 of the Transaction
of Business Rules, 1993 made by the President of India in exercise of the
powers conferred under Section 44 of GNCTD Act, 1991, the approval of
Lt. Governor is required only in respect of the matters specified therein.
'Constitution of a Commission of Inquiry' is not one of such matters and that
Rules 7 and 8 of the Transaction of Business of Government of NCT of
Delhi Rules, 1993 read with Item No.13 of the Schedule to the said Rules
make it clear that no prior consent of the Lt. Governor is required.
221. It is pleaded by the Union of India that the Commission of Inquiry
may be appointed under Section 3 of the Commission of Inquiry Act, 1952
by the 'appropriate Government' as defined under Section 2(a). Since the
terms 'the Central Government', 'State Government' as appearing in Section
2(a) of the Commission of Inquiry Act have not been defined under the said
Act, the definitions provided in Section 3(8) and Section 3(60) of the
General Clauses Act, 1897 have to be applied in which event, in relation to
administration of NCTD, the 'appropriate Government' shall be the Central
Government or the Lt.Governor who is the delegatee of the President vide
Notification dated 20.08.1966.
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222. We have heard Shri Sanjay Jain, the learned ASG who appeared for
the petitioner/Union of India in W.P.(C) No.8867/2015 and Shri Siddharth
Luthra, the learned Senior Advocate who appeared for the petitioner in
W.P.(C) No.8382/2015 and Shri Abhik Kumar and Shri Vivek Singh, the
learned counsels for the petitioner in W.P.(C) No.7887/2015. We have also
heard Ms. Indira Jaising, Shri Rajiv Dutta and Shri H.S. Phoolka, the learned
Senior Advocates who appeared on behalf of the GNCTD/respondent in
W.P.(C) Nos.8867/2015, 8382/2015 and 7887/2015 respectively.
223. Drawing our attention to the definition of "appropriate Government"
under Section 2(a) of the Commission of Inquiry Act read with the
definitions of "Central Government" and "State Government" under Section
3(8) and Section 3(60) respectively of the General Clauses Act, 1897 and
Notification dated 20.08.1966 whereunder the powers have been delegated
to the Administrator of every Union Territory to exercise the powers of a
State Government under the Commission of Enquiry Act within a Union
Territory, it is submitted by the learned ASG that the appointment of a
Commission of Enquiry in relation to administration of Delhi, which
continues to be a Union Territory, has to be made by the Lt.Governor alone
but not by GNCTD.
224. Placing reliance upon State v. Navjot Sandhu; (2005) 11 SCC 600, it
is further submitted by the learned ASG that the notifications issued by the
Union of India delegating powers to the Lt.Governor would continue to
remain valid and operative notwithstanding the enactment of GNCTD Act,
1991.
225. On the other hand, it is contended by Ms.Indira Jaising, the learned
Senior Counsel appearing for GNCTD that GNCTD alone has the power to
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appoint a Commission of Inquiry and not the Lt. Governor since the subject
of inquiry falls under Entry 45 of Concurrent List read with Entries 6, 25 and
26 of State List and Entries 1, 17, 17A, 17B and 35 of List III. It is pointed
out by the learned Senior Counsel that Entry 45 of the Concurrent List deals
with "Inquiries and Statistics for the purposes of any of the matters specified
in List II or List III and List II includes Entry 6 (public health and sanitation
and dispensaries), Entry 25 (Gas and Gas works) and Entry 26 (Trade and
Commerce within the State), whereas List-III includes Entry 1 (Criminal
Law), Entry 7 (Contracts including Partnership Agency), Entry 17A
(Forest), Entry 17B (Protection of Wild Animals and Birds) and Entry 35
(Mechanically propelled vehicles including the principles on which taxes on
such vehicles are to be levied). The learned Senior Counsel submitted that
the power to make laws in respect of all the said matters lies with the
Legislative Assembly of NCTD under clause (3)(a) of Article 239AA and
consequently GNCTD alone is competent to appoint the Commission of
Inquiry in exercise of executive functions under clause (4) of Article
239AA.
226. In support of the contention that Entry 45 of the Concurrent List
confers the legislative power to constitute a Commission of Inquiry, the
learned Senior Counsel placed reliance upon State of Karnataka v. Union of
India; (1977) 4 SCC 608 and State of Karnataka v. Ranganatha Reddy;
(1977) 4 SCC 471 wherein it was held that the Central Government had the
legislative power to constitute a Commission of Inquiry under Entry 45 of
List-III. The learned Senior Counsel has also placed much reliance upon
State of Maharashtra v. Bharat Shanti Lal Shah; (2008) 13 SCC 5 and
Union of India v. Shah Goverdhan L. Kabra Teachers' College; (2002) 8
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SCC 228 to substantiate the plea that "Entries" in the Lists of Seventh
Schedule must receive a broad interpretation.
227. Even as per the provisions of the Commission of Inquiry Act, 1952,
according to the learned Senior Counsel, the power to appoint a Commission
of Inquiry lies with GNCTD only since the term "appropriate Government"
under Section 3 must be read as "Government of NCT of Delhi" as defined
under Rule 2(g) of the Transaction of Business Rules framed by the
President in exercise of the powers conferred by Section 44 of the GNCTD
Act, 1991. It is also contended that the powers conferred under Article
239AA of the Constitution and the GNCTD Act, 1991 cannot be taken away
by virtue of the definition of "appropriate Government" under the
Commission of Inquiry Act.
228. Referring to the opening words of Section 2 of Commission of Inquiry
Act "unless the context otherwise requires", it is sought to be contended by
the learned Senior Counsel that the term "State Government" employed in
Section 2(a)(ii) has to be read along with Section 3 (58 ) of General Clauses
Act, 1897 which provides that the term "State" includes Union Territories
and consequently, "State Government" must be read to mean Government of
NCT of Delhi in the context of the present case.
229. It is also vehemently contended by the learned Senior Counsel that
Article 239AA of the Constitution is a self-contained code and the same
shall prevail over the general provisions with reference to the powers of an
Administrator of a Union Territory. According to the learned Senior
Counsel, by virtue of the special provisions of Article 239AA, the powers of
the Lt.Governor are circumscribed by the provisions of GNCTD Act made
by the Parliament and the Transaction of Business Rules and Allocation of
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Business Rules made by President and the same cannot be ignored while
interpreting the provisions of Commission of Inquiry Act.
230. Section 3 of the Commission of Inquiry Act, 1952 which provides for
appointment of a Commission reads as under:
"3. Appointment of Commission. (1)
The
appropriate
Government may, if it is of opinion that it is necessary so to do,
and shall, if a resolution in this behalf is passed by each House
of Parliament or, as the case may be, the Legislature of the State
by notification in the official Gazette, appoint a Commission of
Inquiry for the purpose of making an inquiry into any definite
matter of public importance and performing such functions and
within such time as may be specified in the notification, and the
Commission so appointed shall make the inquiry and perform
the functions accordingly:
Provided that where any such Commission has been appointed
to inquire into any matter(a) by the Central Government, no State Government shall,
except with the approval of the Central Government, appoint
another Commission to inquire into the same matter for so long
as the Commission appointed by the Central Government is
functioning;
(b) by a State Government, the Central Government shall not
appoint another Commission to inquire into the same matter for
so long as the Commission appointed by the State Government
is functioning, unless the Central Government is of opinion that
the scope of the inquiry should be extended to two or more
States."
231. The expression "appropriate Government" defined under Section 2(a)
of the Commission of Inquiry Act, 1952 reads as under:

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"(a) "appropriate Government" means(i)

the Central Government, in relation to a
Commission appointed by it to make an inquiry into any
matter relatable to any of the entries enumerated in List I
or List II or List III in the Seventh Schedule to the
Constitution ; and
(ii) the State Government, in relation to a Commission
appointed by it to make an inquiry into any matter
relatable to any of the entries enumerated in List II or
List III in the Seventh Schedule to the Constitution"
232. The definitions of 'Central Government' and 'State Government' under
the General Clauses Act, 1897 relied upon by the learned ASG to
substantiate the plea that the 'appropriate government' in respect of the
Union Territories shall be the Central Government may be reproduced
hereunder for ready reference:
"Section 3(8) - "Central Government shall, a)
In relation to anything done before the commencement of
the Constitution, mean the Governor General or the Governor
General in Council, as the case may be, and shall include,i. in relation to functions entrusted under sub-section
(1) of Section 124 of the Government of India Act,
1935, to the Government of a Province, the Provincial
Government acting within the scope of the authority
given to it under that sub-section, and
ii. in relation to the administration of a Chief
Commissioner's Province, the Chief Commissioner
acting within the scope of the authority given to him
under sub-section (3) of section 94 of the said Act, and
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b)

in relation to anything done or to be done after the

commencement of the Constitution, mean the
President, and shall includei.
in relation to functions entrusted under clause (1)
of article 258 of the Constitution, to the Government of a
State, the State Government acting within the scope of
the authority given to it under that clause,
ii.
in relation to the administration of a Part C State
(before the commencement of the Constitution (Seventh
Amendment) Act, 1956, the Chief Commissioner or the
Lieutenant-Governor or the Government of a
neighbouring State or other authority acting within the
scope of the authority given to him or it under article 239
or article 243 of the Constitution, as the case may be,
and
iii. in relation to the administration of a Union
territory, the administrator thereof acting within the
scope of the authority given to him under article 239
of the Constitution."

"Section 3(60) - "State Government", (a)

As respects anything done before the commencement of

the Constitution, shall mean, in Part A State, the
Provincial Government of the corresponding Province, in
Part B State, the authority or person authorised at the
relevant date to exercise executive government in the
corresponding Acceding State, and in a Part C State, the
Central Government;

(b)

As respects anything done (after the commencement of

the Constitution and before the commencement of the
Constitution Seventh Amendment) Act, 1956, shall

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mean, in a Part A State, the Governor, in a Part B State,

the Rajpramukh, and in a Part C State, the Central
Government;
(c)

As respects anything done or to be done after the

commencement
of
the
Constitution
(Seventh
Amendment) Act, 1956, shall mean, in a State, the
Governor, and in a Union territory, the Central
Government.
And shall, in relation to functions
entrusted under article 258A of the Constitution to the
Government of India, include the Central Government
acting within the scope of the authority given to it under
that article."
(emphasis supplied)

233. Thus, it is contended on behalf of the writ petitioners that the

'appropriate government' within the meaning of Section 2(a) of the
Commission of Inquiry Act can only be the Lt. Governor of NCT of Delhi
for the purpose of appointment of a Commission of Inquiry into any matter
in relation to administration of Delhi.
234. Having given our thoughtful consideration to the rival submissions
made on behalf of both the parties, it appears to us that the contention of
GNCTD that on a combined reading of Section 2(a)(ii) of the Commission
of Inquiry Act and Section 3(58) of the General Clauses Act, the expression
"appropriate Government" under Section 3 of the Commission of Inquiry
Act shall be read as the Union Territory, is far fetching. In the light of the
clear and unambiguous definitions of the Central Government and State
Government under Section 3(8) and Section 3(60) respectively of the
General Clauses Act, 1897, we are of the view that the expression
"appropriate Government" in respect of Union Territories shall be the
Central Government only.
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235. Therefore, we agree with the submission of the learned ASG that the
Lt. Governor acting through the Central Government alone is competent to
appoint a Commission of Inquiry in relation to administration of Delhi
which continues to be a Union Territory even after insertion of Article
239AA to the Constitution.
236. Even assuming that the GNCTD is justified in claiming that GNCTD
shall be the "appropriate Government" within the definition of Section
2(a)(ii) of Commission of Inquiry Act and that by virtue of Entry 45 of List
III (Concurrent List) the power to make laws in respect of the said subject
has been conferred on the Legislative Assembly of NCTD and as a corollary
the Government of NCT of Delhi has the executive control over all the
matters relating to the said Entry, we are of the view that the impugned
Notification dated 11.08.2015 under which the GNCTD through Directorate
of Vigilance appointed the Commission of Inquiry cannot be sustained since
the said order had been admittedly passed without seeking the
views/concurrence of the Lt. Governor.
237. After considering in detail the purport of Article 239AA of the
Constitution and the provisions of GNCTD Act, 1991 and the Rules made
thereunder, we have concluded in Para 116 (supra) that every decision taken
by the Council of Ministers shall be communicated to the Lt. Governor for
his views and that the orders in terms of the decision of the Council of
Ministers can be issued only where no reference to the Central Government
is required as provided in Chapter V of the Transaction of Business Rules.
We have also held that it is mandatory under the constitutional scheme to
communicate the decision of the Council of Ministers to the Lt. Governor
even in relation to the matters in respect of which power to make laws have
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been conferred on the Legislative Assembly of NCTD under clause (3)(a) of

Article 239AA of the Constitution and an order thereon can be issued only
where the Lt. Governor does not take a different view.
238. It is not disputed before us that the decision of the Council of
Ministers to appoint the Commission of Inquiry was not communicated at all
to the Lt. Governor and that the impugned Notification dated 11.08.2015
was issued merely on the basis of the Cabinet decision.
239. In view of our conclusion in Paras 107, 108, 116 and 117 (supra), the
procedure followed by the GNCTD in issuing the impugned notification is
ex facie illegal being in violation of the constitutional scheme. Hence, the
impugned Notification dated 11.08.2015 shall stand set aside and
W.P.(C) Nos.7887/2015, 8382/2015 and 8867/2015 are allowed.
W.P.(C) No.8190/2015 (Sandeep Tiwari Vs. Govt. of NCT of Delhi & Ors.)
240. This petition by way of Public Interest Litigation has been filed with a
prayer to quash the letter dated 18.06.2015 issued by the Deputy Secretary,
Department of Power, GNCTD and to declare the appointment of nominee
Directors made thereunder for DISCOMs, namely, Tata Power Delhi
Distribution Ltd., BSES Rajdhani Power Ltd. and BSES Yamuna Power Ltd.
as illegal, null and void. The letter dated 18.06.2015 reads as under:
"GOVERNMENT OF NATIONAL CAPITAL
TERRITORY OF DELHI
(DEPARTMENT OF POWER)
DELHI SECRETARIAT, 8TH LEVEL, B-WING,
NEW DELHI - 110002
No.F.11(129)/2002/Power/Vol.II/1900

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To,
The Company Secretary,
Delhi Power Company Limited,
Shakti Sadan, Kotla Road,
New Delhi - 110002
Sub.: Nomination of Directors on Board of Distribution
Companies.
Sir,
With reference to above mentioned subject, I am directed
to convey the approval of Hon'ble the Chief Minister of Delhi
for appointment of the following as Nominee Directors of Govt.
of NCT of Delhi on Board of BSES Rajdhani Power Limited,
BSES Yamuna Power Limited, Tata Power Delhi Distribution
Limited as under:-

Sl.
DISCOM
No.
1. Tata Power Delhi
Distribution Limited

2.

3.

Name of existing DPCL Nominees

as Directors of DISCOMS

1. Sh.Sanjeev Singh, MD, DTL

2. Sh.Anjani Kumar Sharma,
3. Sh.Sudhir Verma
4. Sh.Prem Prakash, GM (Tech.)
DTL
5. Sh.Arun Kumar Garg, CA
BSES Rajdhani Power 1. Sh.Sanjeev Singh, MD, DTL
Limite
2. Sh.Anjani Kumar Sharma,
3. Sh.Sudhir Verma
4. Sh.Prem Prakash, GM (Tech.)
DTL
BSES Yamuna Power 1. Sh.Sanjeev Singh, MD, DTL
Limited
2. Sh.Anjani Kumar Sharma,
3. Sh.Sudhir Verma
4. Sh.Prem Prakash, GM (Tech.)
DTL

You are requested to convey the approval to the

concerned Distribution companies for further necessary action.
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Yours Faithfully,
Sd/Dy.Secretary (Power)"
241. The following are the averments in the writ petition:
(i) Delhi Vidyut Board (DVB) has been wound up on enactment of
Delhi Electricity Reforms Act, 2000 which came into force on 03.11.2000.
In terms of Section 15 of the said Act, all properties, rights and liabilities of
DVB stood vested in Delhi Government. Delhi Government was further
empowered to transfer the properties so vested in it to joint venture
companies formed under Section 14 in accordance with a transfer scheme
prepared therefor. Accordingly, separate companies were incorporated for
generation, transmission and distribution of electricity. For the purpose of
distribution and supply of electricity, Delhi was trifurcated in three sectors
and, therefore, three distribution companies (DISCOMs) were incorporated
for each of the sectors and further, a holding company, namely, Delhi Power
Company Ltd. (DPCL) was incorporated which held the entire share capital
of the three DISCOMs. In terms of the provisions of Delhi Electricity
Reform (Transfer Scheme) Rules, 2001, the DISCOMs were converted into
joint venture companies by a process of disinvestment by virtue of which
GNCTD holds 49% shareholding in each of the DISCOMs through Delhi
Power Company Ltd. whereas Reliance Energy and Tata Power acquired the
balance 51% shareholding. By virtue of 49% shares held by the Delhi
Government through DPCL, Delhi Government is entitled to appoint 4 out
of 9 Directors on the Board of Directors of the three DISCOMs.

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(ii)

As per Article 239AA(3) of the Constitution, the Legislative

Assembly of NCT of Delhi is prohibited from making laws in relation to the

matters specified in Entries 1, 2 and 18 of List II, i.e. 'public order', 'police'
and 'land' and the said matters exclusively fall within the domain of
Government of India.
(iii)

However, Lt. Governor has been conferred with a wide

discretion by virtue of Section 41 of GNCTD Act, 1991 even with regard to

the matters which fall outside the purview of the powers conferred on the
Legislative Assembly of GNCTD. In the light of the said discretionary
power, the appointment of the Government nominees on the Board of
Directors of the DISCOMs can be made only with the prior approval/consent
of the Lt. Governor.
(iv)

Since the appointment of nominee Directors has been made

without such prior approval of the Lt. Governor, the appointment is liable to
be set aside.
242. While seeking to justify the impugned order, it is submitted by the
learned Senior Counsel appearing for GNCTD/respondent, Sh.Gurukrishna
Kumar that the appointment of the Directors on the Boards of DISCOMs is
made on the basis of the nomination by DPCL and not pursuant to the
recommendations of GNCTD. It is also submitted that while making the
recommendations to DPCL, the GNCTD was merely exercising its right as
the 100% shareholder of DPCL and in turn DPCL was exercising its rights
under the shareholding agreement with the DISCOMs. It is contended that
the writ petitioner who is neither a shareholder nor a creditor of DPCL has
no right to challenge the decision of DPCL under the provisions of the
Companies Act, 2013 much less by way of writ petition under Article 226 of
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the Constitution. For the said purpose, the learned Senior Counsel placed
reliance upon Life Insurance Corporation of India v. Escorts Ltd. & Ors;
(1986) 1 SCC 264.
243. On merits, it is contended that under the Delhi Electricity Reforms
(Transfer Scheme) Rules, 2001, DISCOMs became wholly owned
subsidiaries of DPCL. As per the Terms and Conditions of Shareholder
Agreements between the DPCL and DISCOMs, GNCTD has been enabled
to recommend to the Board of DPCL for nomination of Directors which the
Board of DPCL may either accept or reject.

The power to make

recommendations is neither a substantive right nor an administrative

function but the GNCTD had merely exercised the liberty being 100%
shareholder of DPCL.

Even assuming that such liberty to make

recommendations is substantive, the same does not pertain to a reserved

subject under Article 239AA. Therefore, Lt. Governor has no role to play
since Lt. Governor holds no share in DPCL. Hence, GNCTD is not under an
obligation to seek the approval of Lt. Governor as sought to be contended by
the petitioner.
244. Placing reliance upon Rule 7 to 10 of Transaction of Business Rules,
1993, it is further contended that the Chief Minister and the Council of
Ministers have the prerogative to take all decisions and such decision is only
required to be communicated to the Lt. Governor for the purpose of
publication and, in turn, to ensure compliance with the requirement of
publication under Section 44(3) of the GNCTD Act and Rule 4(2) of the
Transaction of Business Rules, 1993. Reliance has also been placed upon
Rule 14 to substantiate the contention that a decision taken by the Council of
Ministers in respect of all proposals shall only be communicated to the
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Lt. Governor and shall be implemented solely by the Minister pursuant to

such communication.
245. According to the learned Senior Counsel, the role of the Lt. Governor
comes into play only in two circumstances, i.e., (i) where it pertains to his
exclusive executive functions under Rule 45 of the Transaction of Business
Rules, i.e., in relation to public order, police and land in respect of which
also the Lt. Governor has to exercise the powers in consultation with the
Chief Minister, and (ii) where it is a subject covered under Rule 23 of the
Transaction of Business Rules, 1993 which provides the matters where the
file has to be necessarily sent to the Lt. Governor. Thus, according to the
learned Senior Counsel, a reference needs to be made to the Lt. Governor
under Rule 45 only in respect of the matters relating to public order, police
and land and the view of the Lt. Governor is required to be sought only in
those matters. So far as the matters which are not covered under Rule 23 are
concerned, it is contended that the Council of Ministers are required only to
inform the Lt. Governor.
246. Thus, it is sought to be contended that even assuming the writ petition
is maintainable, the relief as prayed for cannot be granted since 'electricity' is
not a reserved subject under Clause (3)(a) of Article 239AA of the
Constitution and consequently, GNCTD is not obligated to seek approval or
opinion of the Lt. Governor.
247. Having analysed the Constitutional Scheme with respect to Delhi, in
particular, Clauses (3) and (4) of Article 239AA of the Constitution read
with the provisions of GNCTD Act, 1991 and the Transaction of Business
Rules, we have already held in Paras 107, 108, 116 and 117 (supra) that it is
mandatory under the Constitutional Scheme to communicate the decision of
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the Council of Ministers to the Lt. Governor even in relation to the matters
in respect of which power to make laws has been conferred on the
Legislative Assembly of NCTD and an order thereon can be issued only
where the Lt. Governor does not take a different view.
248. Therefore, we are unable to accept the contention of Sh. Gurukrishna
Kumar, the learned Senior Counsel that GNCTD is not obligated to seek
approval or opinion of the Lt. Governor and that the appointment of the
Nominee Directors of GNCTD on Board of DISCOMs was rightly made
with the approval of the Chief Minister of Delhi.
249. We do not find substance even in the contention that the power to
make recommendations having been exercised by the Government of NCT
of Delhi in the capacity of 100% shareholder of DPCL, there is no need to
seek the views/concurrence of the Lt. Governor. In our considered opinion,
the recommendation of names to DPCL for nomination of Directors is an
executive function and the same has to be exercised in terms of Clause (4) of
Article 239AA of the Constitution. The contention that the Lt. Governor
holds no share in DPCL and that GNCTD is the 100% shareholder is
unfounded and misconceived. Admittedly, the exercise of the said executive
function is traceable to the subject 'electricity' which is a Concurrent List
subject vide Entry 38 of List III. Though it is not an exempted matter under
Clause (3)(a) of Article 239AA and thus the Legislative Assembly of NCTD
is competent to make laws and as a sequel the Government of NCT of Delhi
can exercise the executive control, as expressed above, the decision of the
Council of Ministers can be enforceable only after communicating the same
to the Lt. Governor and only where the Lt. Governor does not opt for

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referring the matter to the Central Government in terms of provisions of

Chapter V of the Transaction of Business Rules.
250. Since no such procedure was followed before recommending the
Nominee Directors, the appointment of the Nominee Directors to DISCOMs
which has been impugned in the present writ petition is illegal and without
jurisdiction.
251. In the result, the impugned appointment is hereby declared as illegal
and the writ petition shall stand allowed.
W.P.(C) No.9164/2015 (Sandeep Tiwari Vs. Govt. of NCT of Delhi & Ors.)
252. This petition by way of Public Interest Litigation has been filed with a
prayer to quash the order dated 12.06.2015 passed by GNCTD through the
Department of Power directing inter alia the Delhi Electricity Regulatory
Commission to compensate to the consumers in case of unscheduled power
cuts. The said order may be reproduced hereunder:
"DEPARTMENT OF POWER
GOVT. OF NCT OF DELHI

No.F.11(58)/2010/Power/1856

Dated 12.06.2015

Mr.P.D.Sudhkar,
Chairman,
Delhi Electricity Regulatory Commission,
Viniyamak Bhavan, C-Block,
Shivalik, Malviya Nagar,
New Delhi - 110 017
Sub: Directions under Section 108 of the Electricity Act,
2003 regarding disruption in electricity supply to consumers
and compensation payable in respect thereof.
Sir,
Considering the very large number of complaints and
public outcry against power outages, the Government issues
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following policy directions to DERC under the Provisions of

Section 108 of the Electricity Act, 2003
1.

2.

3.

4.

5.

DERC shall put the schedule of power cuts in different

parts of Delhi in advance for next 15 days on its website
and shall update it daily.
In case of an unscheduled power cut (whose details does
not exists on website) except in force majeure conditions,
the supply shall be restored within one hour, if it is
affecting large area say more than 50 connections.
Failure to do so, shall result in a penalty of Rs.50/- per
hour per consumer for first 2 hours followed by Rs.100/per hour per consumer after 2 hours for each hour of
default beyond the specified one hour and shall be
payable separately to each of the consumers affected by
the disruption in supply.
In case of disruption of power of an individual consumer
the supply shall be restored within 3 hours of complaint.
Failure to do shall result in a penalty of Rs.100/- per
hour.
All payments of compensation shall be made suo-moto
by the DISCOMS by way of adjustment against current
and/or further bills of supply of electricity but not later
than 90 days.
DERC shall keep a record of all unscheduled power cuts
in Delhi and the extent of consumers affected by each
power cut on the basis of complaints received from
public or the government or on its own. If the
compensation is not paid suo-moto by the DISCOMS and
if any affected consumer approaches the DERC/CGRF
etc. for claiming the compensation, the amount of
compensation in such cases shall be Rs.5,000/- or five
times the compensation payable on suo-moto basis,
whichever is higher. If any consumer approaches DERC
after 90 days with a complaint that he has not received
his compensation, DERC shall order & ensure payment
to all consumers affected by that power cut.

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The compensation amount paid by a DISCOM shall not

be a pass through in the Annual Revenue Requirement (ARR)
of the DISCOMS.
This issues with the approval of the competent authority.
Yours Sincerely,
(ALKA SHARMA)
DY.SECRETARY (POWER)"
253. Admittedly, the said order has been issued by way of policy directions
in exercise of the powers conferred under Section 108 of the Electricity Act,
2003 which reads as under:"108. Directions by State Government.(1)

In the discharge of its functions, the State Commission

shall be guided by such directions in matters of policy
involving public interest as the Central Government may
give to it in writing.

(2)

If any question arises as to whether any such direction

relates to a matter of policy involving public interest, the
decision of the State Government thereon shall be final."

254. Clause (d) of Section 2(1) of the Delhi Electricity Reforms Act, 2000
defines 'government' as under:""Government" means the Lieutenant Governor referred to in
article 239AA, of the Constitution;"
255. It is contended by the petitioner that in the light of the provisions of
the Electricity Act, 2003 and the Delhi Electricity Reforms Act, 2000 read
with the notification dated 20.02.2004, the 'Government' means the
Lieutenant Governor only and, therefore, the directions to DERC cannot be
issued by GNCTD under the impugned order.

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256. It is pleaded in the writ petition that in pursuance of Article 239(1) of

the Constitution vide notification dated 20.02.2004, it was directed by the
President that the Lieutenant Governor of NCTD shall subject to the control
of the President and until further orders, also exercise the powers and
discharge the functions of the State Government under the provisions of the
Electricity Act, 2003 within the National Capital Territory of Delhi.
257. It is therefore contended by the petitioner that Government of NCT of
Delhi is not competent to issue the impugned directions.
258. It is also contended that the power under Section 108 of Electricity
Act, 2003 can be exercised only for issuance of policy directions but not
preemptory directions as sought to be done under the impugned order.
The petitioner has placed reliance upon West Bengal Electricity Regulatory
Commission v. CESC Ltd; (2002) 8 SCC 715 for the said purpose.
259. Per contra, it is argued by Shri Raju Ramachandran, the learned
Senior Counsel for GNCTD that Entry 38 of the Concurrent List which deals
with 'electricity' is not a reserved subject and, therefore, the Lt. Governor has
no role to play. It is also contended that the notification dated 20.02.2004
has no application in the light of the special provisions with respect to Delhi
under Article 239AA read with the Government of NCTD Act, 1991 and the
Rules made thereunder.
260. On merits, it is contended that the Council of Ministers in terms of
Article 239AA read with the provisions of the GNCTD Act and the
Transaction of Business Rules can take a decision for and on behalf of the
Lt. Governor in respect of the subject in relation to which the Legislative
Assembly of Delhi has been empowered to make laws under Clause (3)(a) of
Article 239AA.
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261. The further contention is that since the Lt. Governor is bound by the
aid and advice of the Council of Ministers as held in Rajender Singh Verma
v. Lieutenant Governor (supra), O.P.Pahwa v. State of Delhi (supra) and
United RWAs Joint Action v. Union of India (supra), GNCTD is competent
to issue directions to DERC without seeking approval of the Lt. Governor.
262. We do not find substance in any of the contentions advanced on
behalf of GNCTD.
263. As noticed above, Section 108 of the Delhi Electricity Reforms Act,
2000 empowers the State Government to issue policy directions.
The expression 'Government' has been defined under Section 2(1)(d) as the
Lt. Governor referred to in Article 239AA.

Admittedly, 'electricity' is

covered by Entry 38 of List III in respect of which the Legislative Assembly

of NCTD has power to make laws.

However, coming to executive

functions, the same shall be in terms of Clause (4) of Article 239AA read
with the Government of NCT of Delhi Act, 1991 and the Rules made
thereunder. Having analyzed the Constitutional Scheme with respect to
Delhi, in particular, Clauses (3) and (4) of Article 239AA of the Constitution
read with the provisions of GNCTD Act, 1991 and the Transaction of
Business Rules, we have already held in Paras 107, 108, 116 and 117 (supra)
that it is mandatory under the Constitutional Scheme to communicate the
decision of the Council of Ministers to the Lt. Governor even in relation to
the matters in respect of which power to make laws has been conferred on
the Legislative Assembly of NCTD and an order thereon can be issued only
where the Lt. Governor does not take a different view.

Therefore, the

impugned decision being contrary to the Constitutional Scheme cannot be

sustained.
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264. It is no doubt true that normally the courts would decline to exercise
the power of judicial review in relation to policy matters. However, having
regard to the fact that the policy directions impugned in the case on hand are
ex facie illegal and unconstitutional, the same are liable to be set aside.
265. Accordingly, the impugned order dated 12.06.2015 is hereby quashed
and the writ petition shall stand allowed.
W.P.(C) No.7934/2015 (Naresh Kumar Vs. Govt. of NCT of Delhi & Ors.)
266. This petition has been filed by way of Public Interest Litigation with a
prayer to declare the Notification dated 04.08.2015 issued by GNCTD as
null and void on the ground that it is without power or authority.
The impugned Notification reads as under:
"GOVERNMENT OF NATIONAL CAPITAL
TERRITORY OF DELHI,
REVENUE DEPARTMENT, S.SHAM NATH MARG,
DELHI.
No.F.1(1953)/Regn.Br./Div.Com/HQ/2014/191
dated 4th August, 2015
No.F.1(1953)/Regn.Br./Div.Com/HQ/2014 - In exercise of the
powers conferred by sub-section(3) of Section 27 the Indian
Stamp Act, 1899 (2 of 1899) and rule 4 of the Delhi Stamp
(Prevention of Under - Valuation of Instruments) Rules, 2007
read with the Ministry of Home Affairs, Govt. of India
Notification No.S.O.1726 (No.F.215/61-Judl.-II) dated the 22nd
July, 1961 and in supersession of this Department's notification
No.F.1(177)/Regn.Br./Div.Com./07/254-279 dated 14.03.2008;
the Lt. Governor of the National Capital Territory of Delhi,
hereby revises and notifies the minimum rates for the purposes
of chargeablility of stamp duty on the instruments related to
sale/transfer of agriculture land under the provisions of the said
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Srl.No.

District

Rates
for
agricultural
land (Rs. per
acre)

Rates for the agricultural land

falling in villages where land
pooling policy is applicable
(Rs. per acre)

1.

East

1 crore

2.25 crore

2.

North - East

1 crore

2.25 crore

3.

Shahdra

1 crore

2.25 crore

4.

North

1.25 crore

3.0 crore

5.

North West

1.25 crore

3.0 crore

6.

West

1.25 crore

3.0 crore

7.

South West

1.50 crore

3.5 crore

8.

South

1.50 crore

3.5 crore

9.

South East

1.50 crore

3.5 crore

10.

New Delhi

1.50 crore

3.5 crore

11.

Central

1.25 crore

3.0 crore

These revised rates shall come into force with immediate effect.
By order and in the name of
the Lt.Governor of the National Capital Territory of Delhi,
Sd/(Sanjay Kumar)
IAS
Spl.Inspector General (Registration) "
267. By the said Notification, the minimum rates of stamp duty on the
instruments related to sale/transfer of agricultural land under the provisions
of the Indian Stamp Act, 1899 read with Rule 4 of Delhi Stamp (Prevention
of Undervaluation of Instruments) Rules, 2007 have been revised
purportedly in exercise of the powers conferred by Section 27(3) of the
Indian Stamp Act, 1899 and Rule 4 of the above-said Rules.

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268. It is alleged by the petitioner that though the Notification has been
issued in the name of the Lt. Governor, the prior approval of the
Lt. Governor as required under the constitutional scheme was not obtained.
The contention is that Lt. Governor being the competent authority to take a
decision in that behalf, the Govt. of NCTD should not have issued the
impugned notification without his prior approval.
269. It is sought to be explained by Shri Neeraj Gupta, the learned counsel
appearing for the petitioner as under:
Circle rates for agricultural land are the minimum rates at which
agricultural land can be transferred or alienated and the subject of the stamp
duty is an incidental outcome of the exercise of fixation of circle rates under
Article 239AA(3)(a) of the Constitution. Hence, fixation of circle rate is
directly relatable to Entry 18 of List II which lies within the exclusive
domain of the Parliament. Executive power being co-extensive with the
legislative power, the Govt. of NCT of Delhi cannot exercise any executive
power in respect of 'transfer and alienation of agricultural land' and anything
incidental thereto.
270. Contesting the writ petition, it is vehemently contended by
Ms.Indira Jaising, the learned Senior Counsel appearing for the GNCTD that
the subject of revision of circle rates is traceable to Entry 63 of List II, which
deals with 'rates of stamp duty' and, therefore, GNCTD is empowered to
exercise legislative power as well as executive control in terms of clauses (3)
and (4) of Article 239AA of the Constitution.
271. While pointing out that the expression 'market value' in Section 27(2)
and (3) of the Indian Stamp Act, 1899 has been inserted by the Indian Stamp
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(Delhi 2nd Amendment) Act, 2001 passed by the Legislative Assembly of

NCTD, it is submitted by the learned Senior Counsel that as a corollary, the
executive control also lies with the Govt. of NCT of Delhi. Thus, it is
contended that the impugned notification under sub-Section (3) of Section
27 of the Indian Stamp Act, 1899 read with Rule 4 of the Delhi Stamp
(Prevention of Under Valuation of Instruments) Rules, 2007 was rightly
issued by GNCTD.
272. It is further submitted by the learned Senior Counsel that the plea of
the petitioner that Entry 18 of List II, i.e., 'land' is attracted is absolutely
wrong since stamp duty is levied on an instrument, i.e., document
evidencing the transfer of agriculture land but not duty on land itself.
Placing reliance upon State of Maharashtra v. Bharat Shanti Lal Shah;
(2008) 13 SCC 5, The Calcutta Gas Company Ltd. v. State of West Bengal;
AIR 1962 SC 1044 and State of Rajasthan v. G. Chawla; AIR 1959 SC
544, it is submitted by the learned Senior Counsel that liberal interpretation
shall be adopted while interpreting the legislative entries by ascertaining the
pith and substance of the enactment.
273. Section 27 of the Indian Stamp Act, 1899 which empowers the
Government to notify minimum rates for valuation of land in relation to
instruments, to the extent it is relevant for the purpose of the present petition,
reads as under:"27. Facts affecting duty to be set forth in instrument
(1)

xxx

xxx

xxx

(2)

xxx

xxx

xxx

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3.
In the case of instruments relating to land, chargeable
with valorem duty, the Government may notify minimum rates
for valuation of land."
274. It is submitted by Ms.Indira Jaising, the learned Senior Counsel that
the term 'Government' under Section 27(3) must be read to mean
"Government of NCT of Delhi" as defined in Rule 2(g) of the Transaction of
Business Rules. The learned Senior Counsel has also relied upon Section
3(58) of the General Clauses Act under which 'State' has been defined as
under:"(58) State, (a)

as respects any period before the commencement of the

Constitution (Seventh Amendment) Act, 1956, shall mean a
Part A State, a Part B State, or a Part C State; and

(b)

as respects any period after such commencement, shall mean a

State specified in the Schedule I to the Constitution and shall
include a Union territory; "
(emphasis supplied)

275. Therefore, according to the learned Senior Counsel the Government of

NCT of Delhi shall be deemed to be a State/Government and it is competent
to notify the circle rates under Section 27(3) of the Indian Stamp Act, 1899.
276. Supporting the contention of the petitioner, Shri Sanjay Jain, the
learned ASG appearing for the Union of India submitted that the fixation of
circle rates is directly relatable to Entry 18 of List II. It is also submitted
that Entry 18 which refers to land in general and 'transfer and alienation of
agriculture land' in particular makes it clear that the power to fixation of
circle rates is directly relatable to Entry 18 which is an exempted subject
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under Clause (3) of Article 239AA. It is also submitted that the contention
of GNCTD that the power is traceable to Entry 63 of List II is untenable
since in terms of the said Entry 63, the stamp duty can be fixed for those
documents which do not form part of List I. It is contended that being an
exempted subject under Clause (3)(a) of Article 239AA, Entry 18 shall be
treated as a part of List-I and, therefore, the Legislative Assembly of NCTD
has no power to legislate with regard to the rates of stamp duty. The further
contention is that though the term 'government' has not been defined in the
Indian Stamp Act, 1899 it has to be read in consonance with the term
'government' used in Clause (B) of Section 9(2) of the said Act which would
mean 'the State Government' as defined under Section 3(60) of the General
Clauses Act. It is also pointed out that vide Notification No.S.O.1726 dated
22.07.1961 read with Notification No.S.O.2709 dated 07.09.1966 issued by
the Ministry of Home Affairs, Government of India, the powers of the State
Government under the Indian Stamp Act, 1899 have been delegated by the
President to the Lt. Governor. It is also submitted that all revisions of rates
of agricultural land that were made in the past were with the prior approval
of the Lt. Governor and the impugned notification issued without such
approval is unsustainable.
277. We have given our thoughtful consideration to the submissions made
by both the parties. Entry 18 of List II upon which the writ petitioner and
the Union of India have relied upon reads as under:"18. Land, that is to say, rights in or over land, land tenures
including the relation of landlord and tenant, and the collection
of rents; transfer and alienation of agricultural land; land
improvement and agriculture loans; colonization."
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278. Entry 63 of List II to which the power is sought to be traced by the

Government of NCT of Delhi may also be reproduced hereunder:"63. Rates of stamp duty in respect of documents other than
those specified in the provisions of List I with regard to rates of
stamp duty."
279. It is relevant to note that Entry 91 of List I deals with 'rates of stamp
duty in respect of wills of exchange, cheques, promissory notes, bills of
lading, letters of credit, policies of insurance, transfer of shares, debentures,
proxies and receipts'.
280. On a careful analysis of Entry 63 of List II and Entry 91 of List I, it is
clear that the power to impose/levy stamp duty has been divided between the
Union and the State. While Union is empowered to levy stamp duty for the
instruments specified in Entry 91 of List I, the States are empowered to levy
stamp duty for the instruments specified in Entry 63 of List II. The law is
well settled that the Entries mentioned in the three lists of the Seventh
Schedule to the Constitution are fields of legislation which merely
demarcate legislative fields between Parliament and State Legislatures
whereas the source of legislative power is Article 246 of the Constitution.
281. Regarding the subject with which we are concerned in the present writ
petition, as rightly submitted on behalf of the Government of NCT of Delhi,
stamp duty is not a duty upon instrument but it is in reality a duty on transfer
of property. In other words, the occasion for levy of stamp duty is the
document which is executed as distinguished from the transaction which is
embodied in the document.
282. For the aforesaid reasons, we agree with the submissions of
Ms.Indira Jaising, the learned Senior Counsel that the power to revise the
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circle rates is traceable to Entry 63 of List II but not to Entry 18 as sought to

be contended by the writ petitioner and Union of India. Entry 63 of List II
not being an exempted matter under Clause (3)(a) of Article 239AA of the
Constitution, the Legislative Assembly of NCT of Delhi has power to make
laws in respect of the same and consequently the executive control also lies
with the Government of NCT of Delhi. To that extent, we find force in the
submission of Ms.Indira Jaising, the learned Senior Counsel appearing for
Government of NCT of Delhi.
283. However, the fact remains that the impugned notification dated
04.08.2015 came to be issued only on the decision of the Council of
Ministers without seeking the views/concurrence of the Lt. Governor.
As expressed in Paras 107, 108, 116 and 117 (supra), such procedure is
contrary to the constitutional scheme. Therefore, though the power to revise
the circle rates lies with the Government of NCT of Delhi, no order as such
can be passed unless the decision of the Council of Ministers is
communicated to the

Lt. Governor and no reference is required to the

Central Government as provided in Chapter V of the Transaction of

Business Rules.
284. Since no such procedure was followed, the impugned notification is
illegal and liable to be quashed.
W.P.(C) No.348/2016 (Ramakant Kumar Vs. Govt. of NCT of Delhi)
285. The petitioner who claims to be a practicing Advocate filed this writ
petition as a Public Interest Litigation with a prayer to quash the Notification
dated 22.12.2015 issued by the Directorate of Vigilance, Government of
NCT of Delhi under Section 3 of the Commission of Inquiry Act, 1952
thereby appointing the Commission of Inquiry to inquire into the allegations
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regarding irregularities in the functioning of Delhi and District Cricket

Association.
286. The impugned notification dated 22.12.2015 reads as under:"DIRECTORATE OF VIGILANCE
NOTIFICATION
Delhi, the 22nd December, 2015
No.F.01/66/2015/DOV/15274-15281 - Whereas, over the past
few months, the Govt. of National Capital Territory of Delhi
received several complaints by retired Indian Cricketers, that
included among them a few legends of the game, about a series
of alleged malpractices and financial irregularities in the
functioning of Delhi & District Cricket Association (DDCA)
and maladministration of the game of cricket in Delhi. In July,
2015, the Government also received a letter from the Ministry
of Youth Affairs and Sports, Govt. of India, requesting to take
appropriate action into matters of irregularities committed by
Delhi & District Cricket Association.
And whereas, pursuant to these complaints and Govt. of
India communication, the Govt. of NCT of Delhi set up a three
member committee to enquire into the matter. The Committee
made several recommendations with regard to cleaning up the
affairs of DDCA. One of the recommendations was to consider
appointing a Commission of Inquiry under the Commissions of
Inquiry Act, 1952 to probe various wrong doings/allegations
among other issues pertaining to DDCA.
And whereas the matter was placed before the Council of
Ministers for consideration. After deliberations, the Council of
Ministers resolved vide Cabinet decision No.2274 dated
21/12/2015 to constitute a Commission of Inquiry under the
Commissions of Inquiry Act, 1952.
And whereas the following Resolution was adopted by
the Delhi Legislative Assembly on 22/12/2015:-

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"That having noted with grave concern the serious allegations

regarding irregularities in the functioning of the DDCA, this
House resolves that:
Pursuant to Section 3 of the Commission of Inquiry Act,
1952, a Commission of Inquiry be constituted by the
Government of the National Capital Territory of Delhi to
inquire into these allegations.
This House further resolves that:
The Government may prescribe appropriate terms of
reference for the Commission, as it deems fit."
Now, therefore, in exercise of the powers conferred by
Section 3 of the Commission of Inquiry Act, 1952, the Govt. of
NCT of Delhi hereby appoints the Commission of Inquiry
consisting of Sh.Gopal Subramanium, Senior Lawyer (Supreme
Court) and former Solicitor General of India. The terms of
reference of the Commission shall be to conduct inquiry into
the:(a) working, management and administration (including
alleged financial irregularities) of DDCA;
(b) whether such practices have been conducive to the game
of cricket;
(c) recommendations to make DDCA an institution
compatible with international standards;
(d) identify any acts of omission and commission by DDCA
and its office bearers during the period between January
1, 1992 and November 30, 2015 and fix responsibility
(e) and whether such acts of omission need to be pursued
and if so, in what manner;
(f)
recommendations to make DDCA an effective and
transparent body so that it could promote the glorious
game of cricket and identify and nurture talent.
Sh.Gopal Subramanium shall be paid Rs.One for this
assignment.

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The Commission shall submit its report as soon as

possible but not later than three months from the date of its first
sitting.
Having regard to the nature of inquiry to be made by the
Commission and other circumstances of the case, all the
provisions of sub-section-2, sub-section-4, sub-section-5 and
sub-section-5A of Section-5 of the said Commission of Inquiry
Act, 1952 shall be applicable to the Commission, and the Govt.
of NCT of Delhi in exercise of the powers conferred under subsection-1 of Section-5 of the Commissions of Inquiry Act, 1952
hereby directs that all provisions of the sub-sections-2,3,4 and
5A of that section shall apply to the Commission.
RAJESH TIWARI, Dy.Secy.(Vig.)"
287. As is evident from the impugned Notification itself, the Commission
of Inquiry has been appointed on the basis of the resolution adopted by the
Legislative Assembly of NCTD dated 22.12.2015. The fact that the said
appointment was made without placing the matter before the Lt. Governor of
NCTD seeking his views/concurrence is not in dispute.
288. The question whether GNCTD can be treated as "appropriate
Government" within the meaning of Section 2(a) of the Commission of
Inquiry Act, 1952 has been considered in detail in W.P.(C) Nos.7887/2015,
8382/2015 and 8867/2015 and at Paras 234 and 235 (supra), we have
concluded that "appropriate Government" to appoint a Commission of
Inquiry under Section 3 shall be the Lt. Governor of NCT of Delhi only.
Therefore, the appointment of the Commission of Inquiry merely on the
basis of the Cabinet decision without approval of the Lt. Governor is without
jurisdiction.
289. In the light of the conclusion we have already reached, the impugned
notification dated 22.12.2015 under which the Commission of Inquiry has
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been appointed on the basis of the resolution adopted by the Legislative

Assembly of NCTD without seeking the views/concurrence of the
Lieutenant Governor is without jurisdiction and illegal.
W.P.(Crl.) No.2099/2015 (Govt. of NCT of Delhi Vs. Nitin Manavat & Ors.)
290. The Government of NCT of Delhi filed this petition challenging the
judicial order passed by the Special Judge-07 (PC Act Cases of ACB,
GNCTD) in FIR No.21/2012 titled State v. Nitin Manavat and seeking a
direction to the Special Judge not to permit anyone other than the Special
Public Prosecutor notified under Section 24(8) Cr.P.C. by the Government
of NCT of Delhi to act as Special Public Prosecutor in the said proceedings.
291. The facts in brief are as under.
292. On the basis of information received from one Vivek Garg, Advocate
with respect to allotment of work relating to CNG Fitness Certificates in the
Transport Department, GNCTD, FIR No.21/2012 was registered on
17.12.2012 by the ACB, GNCTD for the offences punishable under Sections
409, 420, 120B and 34 of IPC read with Section 13 of the Prevention of
Corruption Act.
293. By order dated 03.09.2015 passed by the Home (Police-II)
Department, GNCTD, Mr. B.S. Joon, Advocate was appointed as Special
Public Prosecutor to conduct the cases relating to CNG Fitness Scam on
behalf of Vigilance Department, GNCTD in the trial court.
294. However, on a request made by the Joint Commissioner of Police,
ACB, the Lt. Governor on 04.09.2015 accorded approval for appointment of
Mr. Sanjay Kumar Gupta, Advocate as Special Public Prosecutor to conduct
the prosecution in FIR No.21/2012 dated 17.12.2012.

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295. By Notification dated 07.09.2015 issued by the Home (Police-II)

Department, GNCTD, in exercise of the powers conferred under Section
24(8) of Cr.P.C., Mr. B.S. Joon has been appointed as Special Public
Prosecutor to conduct the case in FIR No.21/2012. Subsequently, Mr. B.S.
Joon filed an application before the Special Judge-07 (PC Act Cases of
ACB) seeking a direction to the Investigating Officer to hand over the police
file to him as he has been appointed as Special Public Prosecutor by
GNCTD vide Notification dated 07.09.2015. However, the Investigating
Officer had placed on record the intimation regarding the appointment of
Shri Sanjay Kumar Gupta as Special Public Prosecutor by the Lt. Governor
vide order dated 04.09.2015.
296. The learned Special Judge by order dated 07.09.2015 dismissed the
application filed by Mr. B.S. Joon holding that in view of Article 239AA of
the Constitution, the Lt. Governor is the competent authority to appoint a
Public Prosecutor.
297. Aggrieved by the same, this writ petition has been filed by the
Government of NCT of Delhi under Article 226 and 227 of the Constitution
read with Section 482 of Cr.P.C. to quash the order of the Special Judge
dated 07.09.2015. It is contended by the petitioner/Government of NCT of
Delhi that the learned Special Judge erred in holding that under Article
239AA of the Constitution, the Lt. Governor is competent to appoint a
public prosecutor. It is also contended that the appointment of Mr. Sanjay
Kumar Gupta with the purported "approval" of the Lt. Governor was illegal
since the said appointment was made unilaterally by the Lt. Governor
without reference to the GNCTD. The further contention is that it is the
elected Government that is empowered in terms of Entries 1 and 2 of List III
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of Seventh Schedule to the Constitution to enforce and deal with 'criminal

law' and 'criminal procedure' in GNCTD.
298. Shri P.P. Rao, the learned Senior Advocate who appeared on behalf of
the Government of NCTD/writ petitioner submitted (i) The "approval" accorded by the Lt. Governor vide letter dated
04.09.2015 for the appointment of Mr. Sanjay Kumar Gupta as
Special Public Prosecutor is without authority of law since the
Minister-in-charge alone is competent to make such appointment in
terms of Section 44 of the GNCTD Act, 1991 read with Rule 2 of
GNCTD (Allocation of Business) Rules, 1993 and Item 10(6) of the
Schedule annexed thereto.
(ii) Even as per Rule 15 of the Transaction of Business of the
Government of NCT of Delhi Rules, 1993, disposal of such matters is
permissible by or under the authority of the Minister-in-charge i.e.
Home Minister and the Lt. Governor has no role to play.
(iii) Since the appointment of Special Public Prosecutor is not
relatable to Entries 1, 2 or 18 of List II of Seventh Schedule to the
Constitution which are exempted matters under Clause (3) of Article
239AA, Clause (4) of Article 239AA is not at all attracted. On the
other hand, the appointment of Public Prosecutor is expressly
relatable to Entry 2 (Criminal Procedure) List-III (Concurrent List) in
respect of which the power to make laws has been expressly conferred
upon the Legislative Assembly of NCTD. Consequently, the
executive power in relation to the said matters also vests with
GNCTD.

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(iv) Placing reliance upon R. Sarala v. T.S. Velu; (2000) 4 SCC 459
and State of U.P. & Anr. v. Johri Mal; (2004) 4 SCC 714, it is
contended that the appointment of Public Prosecutor under Section 24
of Cr.P.C. is independent of Police or any other executive wing of the
State.
299. Section 24 of the Criminal Procedure Code, 1973 which provides for
appointment of Public Prosecutors, to the extent it is relevant for the purpose
of the present case, reads as under:
"24. Public Prosecutors. - (1) For every High Court, the
Central Government or the State Government shall, after
consultation with the High Court, appoint a Public Prosecutor
and may also appoint one or more Additional Public
Prosecutors, for conducting in such Court, any prosecution,
appeal or other proceeding on behalf of the Central Government
or State Government, as the case may be.
xxxx
xxxx
xxxx
xxxx
(8) The Central Government or the State Government
may appoint, for the purposes of any case or class of cases, a
person who has been in practice as an advocate for not less
than ten years as a Special Public Prosecutor.
xxxx

xxxx

xxxx

xxxx"
(emphasis supplied)

300. As could be seen, Section 24(8) of Cr.P.C. empowers the State

Government for appointing a Special Public Prosecutor for the purposes of
any case or class of cases. Admittedly, NCT of Delhi is a Union Territory
and not a State. As per Sections 3(8), 3(58) and 3(60) of the General
Clauses Act, 1897, the expression 'State Government' for the purpose of a
Union Territory means the President and includes the Administrator in terms
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of Article 239 of the Constitution read with the Notification dated

20.03.1974 {See Para 167 (supra)} under which the Administrators of all the
Union Territories were empowered to exercise the powers of the State
Government under Cr.P.C. So far as NCT of Delhi is concerned, the 'State
Government' thus means the Lt. Governor for the purpose of Section 24(8)
of Cr.P.C. However, the power to appoint a Public Prosecutor is relatable to
Entries 1 and 2 of List III in respect of which the Government of NCT of
Delhi has legislative competence under Article 239AA of the Constitution.
As a corollary, the exercise of the functions relating to the said subject by
the Lt. Governor under Article 239AA(4) of the Constitution shall be on the
aid and advice of the Council of Ministers with the Chief Minister at the
head.
301.

Hence, we are unable to accept the contention of the Union of India

that the Council of Ministers have no role to play in exercise of the powers
under Section 24(8) of Cr.P.C. In our considered opinion, the Lt. Governor
under Section 24(8) of Cr.P.C. does not act eo-nominee but exercises the
executive functions of the State. Hence, the said power has to be exercised
on the aid and advice of the Council of Ministers in terms of Clause (4) of
Article 239AA of the Constitution.
302. For the above reasons, we are of the view that it is not open to the
Lt. Governor to appoint the Special Public Prosecutor on his own without
seeking aid and advice of the Council of Ministers.
303. In the circumstances, the impugned order dated 07.09.2015 passed by
the Special Judge-07 in FIR No.21/2012 is hereby set aside and there shall
be a direction to the Special Judge to pass an appropriate order afresh in
accordance with law.
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Conclusions:304. The conclusions in this batch of petitions may be summarized as

under:(i)

On a reading of Article 239 and Article 239AA of the Constitution

together with the provisions of the Government of National Capital
Territory of Delhi Act, 1991 and the Transaction of Business of the
Government of NCT of Delhi Rules, 1993, it becomes manifest that
Delhi continues to be a Union Territory even after the Constitution
(69th Amendment) Act, 1991 inserting Article 239AA making special
provisions with respect to Delhi.

(ii)

Article 239 of the Constitution continues to be applicable to NCT of

Delhi and insertion of Article 239AA has not diluted the application
of Article 239 in any manner.

(iii)

The contention of the Government of NCT of Delhi that the

Lt. Governor of NCT of Delhi is bound to act only on the aid and
advice of the Council of Ministers in relation to the matters in respect
of which the power to make laws has been conferred on the
Legislative Assembly of NCT of Delhi under clause (3)(a) of
Article 239AA of the Constitution is without substance and cannot be
accepted.

(iv)

It is mandatory under the constitutional scheme to communicate the

decision of the Council of Ministers to the Lt. Governor even in
relation to the matters in respect of which power to make laws has
been conferred on the Legislative Assembly of NCT of Delhi under

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clause (3)(a) of Article 239AA of the Constitution and an order

thereon can be issued only where the Lt. Governor does not take a
different view and no reference to the Central Government is required
in terms of the proviso to clause (4) of Article 239AA of the
Constitution read with Chapter V of the Transaction of Business of
the Government of NCT of Delhi Rules, 1993.
(v)

The matters connected with 'Services' fall outside the purview of the
Legislative Assembly of NCT of Delhi. Therefore, the direction in
the impugned Notification S.O.1368(E) dated 21.05.2015 that the
Lt. Governor of the NCT of Delhi shall in respect of matters
connected with 'Services' exercise the powers and discharge the
functions of the Central Government to the extent delegated to him
from time to time by the President is neither illegal nor
unconstitutional.

(vi)

The direction in the impugned Notification S.O.1896(E) dated

23.07.2014 as reiterated in the Notification S.O.1368(E) dated
21.05.2015 that the Anti-Corruption Branch Police Station shall not
take any cognizance of offences against officers, employees and
functionaries of the Central Government is in accordance with the
constitutional scheme and warrants no interference since the power is
traceable to Entry 2 (Police) of List II of the Seventh Schedule to the
Constitution in respect of which the Legislative Assembly of NCTD
has no power to make laws.

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(vii) Notification No.F.5/DUV/Tpt./4/7/2015/9386-9393 dated 11.08.2015

issued by the Directorate of Vigilance, Government of NCT of Delhi
under Section 3 of the Commission of Inquiry Act, 1952 appointing
the Commission of Inquiry for inquiring into all aspects of the award
of work related to grant of CNG Fitness Certificates in the Transport
Department, Government of NCT of Delhi is illegal since the same
was issued without seeking the views/concurrence of the Lt. Governor
as provided under Rule 10 and Rule 23 read with Chapter V of
Transaction of Business Rules, 1993.
(viii) For the same reasons, the Notification No.F.01/66/2015/DOV/1527415281 dated 22.12.2015 issued by the Directorate of Vigilance,
Government of NCT of Delhi under Section 3 of the Commission of
Inquiry Act, 1952 appointing the Commission of Inquiry to inquire
into the allegations regarding irregularities in the functioning of Delhi
and District Cricket Association is also declared as illegal.
(ix)

The appointment of Nominee Directors of Government of NCT of

Delhi on Board of BSES Rajdhani Power Limited, BSES Yamuna
Power Limited and Tata Power Delhi Distribution Limited by the
Delhi Power Company Limited on the basis of the recommendations
of the Chief Minister of Delhi without communicating the decision of
the Chief Minister to the Lt. Governor of NCT of Delhi for his views
is illegal.

(x)

The proceedings of the Government of NCT of Delhi, Department of

Power No.F.11(58)/2010/Power/1856 dated 12.06.2015 issuing policy

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directions to the Delhi Electricity Regulatory Commission regarding

disruption in electricity supply to consumers and compensation
payable in respect thereof are illegal and unconstitutional since such
policy directions cannot be issued without communicating to the
Lt. Governor of NCT of Delhi for his views.
(xi)

The

Notification

No.F.1(1953)/Regn.Br./Div.Com/HQ/2014/191

dated 04.08.2015 issued by the Government of NCT of Delhi,

Revenue Department in exercise of the powers conferred by
sub-section(3) of Section 27 the Indian Stamp Act, 1899 (2 of 1899)
and Rule 4 of the Delhi Stamp (Prevention of Under - Valuation of
Instruments) Rules, 2007 revising the minimum rates for the purpose
of chargeability of stamp duty on the instruments related to
sale/transfer of agriculture land is illegal since the said notification
was issued without seeking the views/concurrence of the Lt. Governor
of NCT of Delhi as required under the constitutional scheme.

(xii) Though the Lt. Governor of NCT of Delhi is competent to appoint the
Special Public Prosecutor under Section 24(8) of Cr.P.C., such power
has to be exercised on the aid and advice of the Council of Ministers
in terms of Clause (4) of Article 239AA of the Constitution.
305. In

result,

W.P.(C)

No.5888/2015

is

dismissed,

W.P.(C)

Nos.7887/2015, 7934/2015, 8190/2015, 8382/2015, 8867/2015, 9164/2015

and 348/2016 are allowed and W.P.(Crl.) No.2099/2015 is disposed of with
directions.

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306. C.M. Nos. 5182/2016 is disposed of permitting intervention of the

applicant/Reliance Industries Ltd. in W.P.(C) No.5888/2015.

The other

application being C.M.No.5183/2016 is dismissed.

307. C.M. No.16088/2016 in W.P.(C) No.5888/2015, C.M. Nos.12753/16 &
16063/2016 in W.P.(C) No.7934/2016, C.M. Nos.12673/2016 & 20304/2016 in
W.P.(C) No.8867/2015, C.M.No.12674/2016 in W.P.(C) No.8382/2015,
C.M.No.12754/2016

in

W.P.(C)No.9164/2015,

C.M.No.13616/2016

in

W.P.(C) No.7887/2015, C.M.No.12752/2016 in W.P.(C) No.8190/2015,

C.M.No.13619/2016 in W.P.(C) No.348/2016 and Crl.M.A.No.4864/2016 in
W.P.(Crl.) No.2099/2015 are dismissed.

308. No order as to costs.

CHIEF JUSTICE

JAYANT NATH, J.
AUGUST 04, 2016
kks/pmc/anb

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