I

CONSTITUTIONAL LAW OF INDIA

A Critical Commentary

FOURTH EDITION

I
l,!

BY

H. M. SEERVAI
Senior Advocate, M.A., LL.B., F.B-A.
Advocate-General of Maharashtra, I 957- 1 974

L "We are all afraid for our confidence, for the

- That is the nature of the
future, for the world.
human imagination. Yet every man, every
civilisation, has gone forward because of its
engagement with what it has set out to do. The
personal commitment of a man to his skill, the
intellectual commitment and the emotional
II commitment working together as one, has made
the Ascent of Man."
J. Bnorowsrt

VOLUME 3

Oniverssl
Lov Publhhing (0. Pvt. ltd.

I
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palrocul o1 p.11i,irpd i^""'q q'1qi-
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;j}gff sear i(cua8raq
prrrl- 'o*qrnr"rp ro-"irn] lo prmol8'aq1 uo
qr aq1 '.acroJ olt{ aur't riqi"fisuoc aql rage aur'r l*nJ aq1 :og ?'E
-parr'relcoid
'aPnbaPe ra8uol ou sI 1uau4"al1 qcn3
qlarlrraue s1r pue 1,.{ruatraurg aq1,, se rau"araq)" '9L6I
o1
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;i- p"ufr;1x;i.i r"iiit "-g "qJ 'iw '1pap:ua. sel ',.
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l'o r'"BT 'ir t" (t-tlj'puE :^cuaEraun
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(n) :uorlualaP t'"i"'i i'o-'gj i"iseJ 19 ja-ln e ur dcua8raura 1o
ii'ire*tiiorir 't "oT
yo paga aq1 !5:aprsuoc iI19? iqt 'sacu?lsuntnr rIl
raiuq :uorp11suo3' :i'o rn''pitpo{"ra suropaag +Tffi:ljtlTTffi
-irfiq*.ra
'ndadri o1 aPeE uaaq peq 1dura11e ou - uorssal;;
;;r-;L riaaq 'piq qJq^ lg 1e - sapua8raura roflrBa eql
lou s'-'
Eritmg 'irorrn11suo3 .rno lo sriordr'rri'r6 fcuaElarug- aq1 01 PoloAaP
,liirJiir. i'looq s-ql 1o suoorpa Puocas Pus 1s41 aq1 u1 r'B
""-r** ifaffi plto ggt '298 sapluv
69g
I NOU.cSS
NOIIIIJTIS,NOS SHL dO SNOISI^OUd AJN1CUSfiS
XD(X UEIdVID
3082 CONSIITUTIONAL LAW OF INDIA

th€
view of this Artich was that even if the security of a part of Indi,a the
was threatened, the emergency had to be declared throughout the rrhole the
of India. The 42nd Amendment righlly rernoved this defect. However, obl
the 42nil Amendment added new sub-Articles to Art. 352. Since the Pe,
proclamation of emergency can be issued on the ground of (i) war bu
or external aggression, or (ii) intemal disturbance, sub-Art. (4) authorised "N
the issue of a proclamation on one of the two aforesaid grounds euen th€
il a proclonation of emergencg was r.n Jarce on the other of those of
hto grotlnds. The Shah Commission has expressed the view that since the
by the 42nd the proclamation of emergency issued in 1971, (on the ground of exlemal of
aggrission), was in force, Article 352, as it stood in Jtme 19?5, did ifi
not warrant the proclamation oI the emergency on the ground of intemal of
disturbance, and Mrs. Gandhi got sub-Article (4) inserted in the Constitution the
to legalise the second proclamation (para 5.69 of the Repon). As sub-Article agz
(4) has been deleted by the 44th Amendment, it is unnecessary to 35i
consider this view further. &r
go
29.5 Sub-Article (5) ot Art. 352 inserted by the 42nd Amendment made
w&
the hesident's satisfaction in procl,aiming an emergency final and conclusive
and provided that such satistaction shall not be questionedin any Court 29.'
on any ground; and further barred the jurisdiction of any court to prc
consider fhe validity of a proclamation made by the President and also in1
the continued operation of such proclamation. Sub'Art. (5) was clear[ pro
meant to exclude judicial scrutiny of a proclamation or its continuanca th€
This is not surprising in view of the facts found by the Shah Commission AN
that there was no justification for the proclamation of the Emergency. in
29.6 The excesses of the Emergency have focused attention on the
bd
Thr
following defects of An. 352 as originally enacted: (a) Although in for
Iorm the Proclamation is issued on the satisfac{ion of the President' is
in reality it is issued on the satisfaction of the Union Govt. The Artide Pr(
did not exclude the possibility of a Prime Minister advising the issue on
of a Procl,amation on his or her own initiative without the authority o9t
of the Cabinet as Mrs. Gan<lhi did, professing that a rule of busine+s
enabled her to -act as she did. (b) Once the proclamation of emergenqr
tha
tb€
had been approved by both Houses within the stipulated period, no onl
provision was made for bringiag the continuance of the Proclamation Prc
Lefore the House for approval every 6 months as had been provided ex€
for in Art. 356 (Proclamation on the failure of constitutional machinery in
in a State). Nor was any machinery provided for enabling members the
of Parliament to move thai the Proclamation be disapproved or revoked' 29.r
The 44th Amendment has removed these defects. A Prime Minister the
cannot now advise the President to make a proclamation of emergenqr of
on the Prime Minister's sole authority, for the amended Article requires a(
that a proclamation shall not be made "unless the decision of the Union th€
Cabinea (that is to say, the Council consisting of the Prime Minister spe
and other Ministers of'Cabinet rank appointed wrder Art. 75) that strcb and
proclamation may be issued has been communicated to the President abs
" Sec6ndly, the approval of the proclamation by each House
in writlng.-given AN
is to be within one monfh and nol tuo mor'ths os before; and oI
the approial was not to be by a simple majority as before, but by hc
m"jo.ity of not less than hall the membership of eo-ch llouse and life
"a majority of two-thirds of those present and voting. Thirdly. a provisron 2l
has 6een made that a proclamaiion of emergency would lapse withu
6 months unless each }iouse has approved of its conrinuorlce by the
aforesaid majorities and this provision applies to the continuonce of
r
 CLII
,OLII f,Sy (LO.):6Sr'8tt U')S ? (196I) qdurs ro.rrqg
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a r( i
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pue 0z s'|rv saPnlJxa rlssardxa luauPuaury qltt aql 'Auaq[ Pue oJll
iol ubipaloid fuB lnoqtlr\ paga u! qdoad aq1 ual raPlo- s.luaPlsald
r!9r !v rq aql ur alJrlry 1eq1
1o uorsnlcrn aqt lsql Pue 'ePUI 14 aldoad aql p
pu, alll Io uolpalord aql Jo,tuo'[sodar alos aq] ss,vr IZ -]ry
^fr"q['asDc sndJoc soaqoll aql ln Pa["^aJd qcq,Yr 'uonualuor PJnsqr
l"ql
aql ProAE 01 raPro u! 1ng 'uolel aAEq lou PFoc a^llnJaxa_ aq-l PL
IZ Pw 0C afeui a,req pu plnoc alBls aql m ued u! salcllrB urBEaJ Eulf1rJadt
rip.rg s.luaptsa.rg aql JoJ 1nq 'qJrq^l 'uorlca alllncaxa lo EupIEl aql
puE lYrq a;o tut4eu aql Pasuoqlne luaurPuaury puzt aq..L 'Lmoc 3
a^ou lou plnoc uosred B qJJqrtl Jo luauraoJoJua aql JoI [[ ued ,o
salargv ro alJIlrV IrE Eu1 $oads Japro ua a_nssr PFoJ luaPlsaJd rO
6{X qtnrY 'fjua8ieura Jo uolleurepord a uo 'Papeua Apu$uo sB 69g apllry uI 8'c
r'89C '1rV {q palepqea 1ou sen fruairaura aql Io uorlBrrrBlccrd ql
a.royaq iplur .trq e lsql uorslcaP 'lC dns aql -ol paga salS ggg 'py tl
luaiufueine puoias s.rq1 ,\q " qJns .rapun ,tpo ua{sl uollca aallnxrx, F?r oJd
pafcafo.rd pui 'apsru se.ar I uaqar uolleJado tn ,(cuafuaurg Jo uolleruelJord
iql o1 uoilqa.r tn se,r 1r lBql' -lercar e paul"luoc qclqrti ,rrq 1"q1^ {tto
pii.calo.rd udrleuqco.rg qcns ',(ipuocag 'uog9qa.l PaurrB Io punol8 aq1
iro dcua8.raulg Jo uolletrrElcord e dq papuadsns pq sert\ 6I '1.rV 11n F{nsnq
ryroqs a^oqE pasrcqYlt a^sq I sProrn aql'..uollaJado t4 s! uolssaJ66D &rcq
louialra n iom iq pauapau4l n toaoqt nro17lzal ?\t to uod tuto iItsSI
ro olpul lo n]j.tncas aql ?Iql 'dcua'.raurg Jo uorFur"lcold
e a1q11,, sproAr aq1 palnllFqns 'u?"].D1fap
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'ua{a} ro apPul aa?q pu PFoc alPtrS aql uollBuralaoJd r{cns ro} llxl
qarqh 'uorpe a^IlnJaxa due a>p1 Jo '-!\al Aus a)isur PFoc 'm Ued rq
paugap se 'alels aql lsql asuos oql q 6I '}IV ..PaPuadsns,, 899 'lrv
:dcuit.raura yo uorle-urelco.rd a uO aJuaqrnlflP Fu-Ja1rn 1o punolE aq1
1rv :0s8 lrY uo oslp prrB uorsiarEEe pu:ayo .ro re,l;o punolS aq1 uo p_aurrqco.rd
dcua8iarula uB 01 qpq paqdde luaurpelmc qJns PuB 'gqg gy put8uo aq1 u
'Frg 'JoI paprao.rii siar irorle.rado ut se,t r(cua8laura ue 1o uorleulqco.ld
aq1 sr luol sB aldoad aql Jo suopaag aql Jo pau{r-BunJ aqJ, l'64
'PaPnlcxa aq ol lou sBd
aJrranurluot apLl olout sll ro uollauralrdrd € Io ans$ apy' DlDul aql oltll ot
01 UnoC aql ]o uollclPsrrnl aql alBr ,(ue 1t lrql saoqs 'lualllPuaurv
puzt aql ,(q payasrn ssd\ qr!t{1tt '(9) 'lJv-qns Jo uollolaP a{L 298
;uv' fq'pariayuoc raarod aqi Io amqc aq'l Io aJuarncal aq1 prntir
sp.rtntalei lerlueFqns ale asaqJ 'uollnlosal aq1 ttruaptsuoc Jo asodlnd aqt
roy 'acrpu qcns 1o ldraca.I aql urotl s{ep 11 u.n11,n'aldoad aql Io
asnoH aq1 Io EullUs poads u IIE, Ilstls 'uolssas ur lou $ asnoH aql J!
'1uap!e.rj aql ro 'uolssas ur sr asnog aql Jr'ra{Bads aq1'arllou q)ns }o
ldra5a: uo uaql 'pa,rolddesrp oq'acuEnulluoJ sI lo 'uollBurBltoJd aql
lpql aaour ol allsap ltaql 1o ftn1u,$ uI acllou Eqcllrv sa^6 asnoH aql Io
dlqsJaquau aq1 ,o qrcI/I 1 1uq1 sapt,to.td Jaqlm] PaPuaurB al{l
'x1i1gj '.,suorsr,ro.rd Euro8arol aql rn P neluor Eur-q us Surpurpqllrt\1oN,,
spi6in- a(1 q1rr\ suado (L) 'ug-qns asnecaq nluorou aldatrs o ftq
'5cuenurluoc s1t ro 'uorleruqco.td aql Eul^oJddesry uoqnlosar e Passad aldoad
aql ,o asnoH aql I uor'lBurElrord aql aloAar ol luaPlsaJd aq1 saEqqo
16 'py.qns pappr r(1,nau aql 'Jalllea Pauolluotu satluo(Pur Plcads aql
i5imuai fcuaf.raura Jo uoll?ruslcord s Jo aJu?nurluot aq1 Jo pao:dde aqt
qtnoq{e '^NUnoJ 'sr{'}uour g }o spouad aalssaa)ns ro1 uotleruelcold aq1
ta08 NOLUIJLLSNOJ S}II JO SNOISIAOUd AJ}trI'US}IX
3084 CONSTITUTIONAL LAW OF INDIA

r* nquic th€ same provision w8s inserted in Art. 359 as to the rccital to be h3
"Er
"*d contained in the laws protec{ed under Art. 359 as also executive ection
taken under them as was made in Ad. 358. attc
ngl
2S.8 It will bave been notic€d that ahhough tbe opening words of Art.
358 were altered, so that An. l9 was not suspended by a proclamation
or
of emergency on the ground of armed rebellion, no such change has
t5t been made in the opening words of
ed
^tu. 3!0 Art. 359. Consequently, the proclamation
of emergency there rcferred to would include also a proclamation made
on the grotmd of armed rebellion. At first blush there would appear a.
to be a conflict between the amended Arts. 358 and 359. However,
a little reflection would show that there is no conllict. The change
in language shows a recognition of the fect, th8t the conditions created,
and tlre necessities imposed, by war, are very different from the conditions
created, and the necessities imposed, by armed rebellion.r Consequently,
the view appesrs to have been taken tbat on tbe making of a proclamation
Co
of emergency on the ground of war or external aggression, Art. 19
should be suspended, in the sense explained earlier, without any'hing br-.
more being done. However, armed rebellion may be of such a natur€ E
as to b€ quelled without depriving people of their freedoms under Ai.
19. It was left to the execrrtive to determine whether armed rebellion
was of such a nature as to create conditionE resembling those crested
by war, in which case the President could include Art. 19 in the Proclamation
issued under An. 358 which would then enable the $.ate to make
laws and to take executive action which, but lor such proclam.tion,
the Slate could not have made or taken. Ttre clearest exarnple of such
armed rebellion would be of an armed rebellion indistin guishable Jron
cioil luor. It is a matter of history that the United States faced en
armed rebellion, which developed into 8 civil war; and the federal Govt-
put down that rebellion by force after 3r/u years ol bitter fiShting betwe€n
the armies of the Nodhern and the armies of the Southern $ates. t
SEC'IIoN II
Arts.355-356
29.10 I have said earler (ChapterV, para 5.23, VoL I of this edition)
that the provisions rElating to the failure of constitutional machinerlr .I
had been gravely abused. Article 356 raises three questions. First, wbetber
constitutionsl changes are not requied to prevent that abuse. That questioo
is outside the scope oI this work, but has been discussed in a seperalr
publication.s The second question is whether the changes made in Art.
356 by the 44th Arnendment do not go some way to mitigete tb
abuse of the power confened by Art. 356. That question will be discused
later. The third and most important question is as to the scope of
judicial review in dealing with a challenge to an order under AIt. 356-
This question has assumed gr€at importance since the Sup. C't.'s decisio
in Raj6rhoTr v. Unioni ('the Rojosthon Cose').
reeurrtre 29.11 But before considering the judgments in the Rajosthon Casc
*".ri"-T,l we must namate the leeislative history of Arts. 355 and 356, and, secondbr.
.-.-*,PP--'.:
u/e must consider tbi nature of the rights conJerred and obligatiois
imposed by Arts. 355 and 356 if the contentions raised in th€ nojorrhon
-.|'ff, Cos€ are io be properly evaluated. It is unforttmate tliat the legislativc
;;;;;
. Fa a lull dirc{rsioo oI thi. tubiect. !€c AppeDdir V, prre 1,5, Vol. I ol thc tb Gillio
ol thi! book.
5 S€erv.i, .En rg.rcr, P1/tu;te Solagttotdt cnd tha Hob.or Corpur Co*: A Cliltitrlr' Itp. lol
to 118. I (le?8) I S.C.R. r. (??) ASC. 1361.
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s?,{ tdorrl1e srxrr:as ,t4eor s I l"ql puelirz ssinbreN tq!
lo ua IS
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uaq lol 4nltlsqns plto t auuaaal Tiqlsuodsr] Jo saldrrut..d ?41 ,Jaaqns 01 'su.Lro!
lDnoltntrtsuo, ,rqrr,n durrro a?lqfl '?poru d req 1du4?D h.uD to Uaa" a]{.l 11 altaat4 t 07
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Jo aJBad aql ot oceuaur a,,r.er8 due Jo uolluaaald otll (E),, - 'd?s ol u(xFa
sr leql 'sorl$qrsuodsa.r prcads 3uraro11o1 aq1 a^sq IIBqs'uaC"^oC aql I TFq
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ar{l Jalua o} uollualut slr PaTBIJaP Peq ssa.r8uo3 arl'} }o uorpas
auo asnBcaq Palceua arar$ t6 Pue ^lred
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.uorleJaPad aql
Jo luaururaaoc aqt JoJ PapI'Isqns s€,rl oclll ord aql Jo luauulaaoc
aql pu? '[BJauaC-Joura^oC aq1 roJ Palnlrlsqns aJaa saJur^oJd ]o
sJouJaAoC aql lsql ldacxa ourBs oql stpuolnu, srlolnu, sExr t6 uolpas
a.{, or Btnl"Fr ,y
sr-.{, ,o sorsr ord ," it;1if'**i:fr$
lo uonerado aql 'rred u!
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sJ suotsao:d lenuonbasuoc p(Ie FluaPlcur qf,ns qs]uoJ ,(eur uollEurelrord qcns pue
^eqr
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pagl;aas aq ,(efi se lueixa qans ot IFqs suonron, qq 1eql arelcap (o) - uoll"ulPpord ,tq
eq 'Dy slqt Jo suorsr^ord aql qll^r aruepro)ce q uo papr", aq loutrD uollelaprJ
^euI
aqt lo tuoErure$8 aql Flq^r uT uaslJp s?q uonenlls e l{q1 pagsltps sJ FrauaC_roure^oC
aqt aurn le I1 (D slloti?luolrc,rA aassr o, lorau{r-rou.L?aoD la lamod
- "1t,,
^ne
: srrlolloJ sB UBJ (I)q? uoqcas 'Pollllua ,(1.rqruns se,r
q)r-q,Y. I raldsr{c 'tr pej ut sactnao.t4 arl'} uI ornIIeJ rpns :o; peprr'ord
t0 s puE ..^Jau.rqcBIAI IEuotlnIFuoC Jo arnl-rBl Jo asBc rrr suorsraoJd,,
'l'c e6 Pw paulua pV aql ]o A Jaldsr{C 'tr lIBd ur uorlEr"pad aql ro} d:arlnlceru
Fuorlnl'lsuor Jo arnlrPl ro} PaPnord 98 '1cv 'Ic aql ]o 9t uolpes ?I'6?
8..1rY rc eql Jo suorsl^ord oql Jo 1q3n 5q) u! per.l aq 'tFulpmcce
lsnur uollrl}ltsuoJ aql ,o suorsr^ord eql leqt pup'l[nq;r uoqnlnssoJ ']uasard aqt qrrq,rr
uo {ro,$a[e.g oql suleqrar IFls lf 'uonrppe pue uoBecglpoor 'peda{o ,{s,{ ,{q .Eueqr
qqerap$uoc aqoBrapun pEq le$ rFnoe prrE g0 'lcv I) aq) repun paqsllqq$ uaaq PEtl
uoqnlnsuo) IEJaPJ € leql 'DsD., Dlnqr,, e uo uant! lou s?rYl uolnlqssoJ rno ,.
:lstll rdV '^ .LalulotoJopun d'r1I ur pea:asqo ,(11qtu
'1. mdry BrrrBrrlB{uaA 'asr:C uoqtsotng aql q EnoC arn Jo uortualle
aq1 o1 lq8norq uaaq alsq o1 .readde loq saop .,suolslloJd dcuaEratug,,
pa[']r]ua uorp'[1suoC rno JoIIIAX 1rsd ul 99t pue 99t 'sUV Jo d.to1s1q
980t NOLLILU,LSNOS gIlL JO SNOTSI OUd ACNSTUSNA
 3086 CONSTITUTIONAI LAW OF INDIA

_-.^ j^:y
29:l! Th" .F..lo_ly 9f s!. - 4.5_ and, 93 of the G.L. Act, !5., -shows that foot note
.fi'fffi B{ tluT-F6-wer ii not acturately desbribed as an emergenc\L pou,el $iii6 - Drafting C
45 and 93 appeared in separate Chapters entrtleii "Provisions in case
",."-".,r" of farlure of Constitutional Machinery". oJ India':
*":;l[ti Section 102 had the marginal
po*; note "Power of the Federal Legislature to legislate if an emergEncy
provisions
repeated (
is proclaimed". Section 102 was included in a lroup ol sections ;hicir dealt with
lppeared ql Part V, Chapter I, "Distribution of lrgrslative Powers". for an ad,
Section 102 is too long to quote, but a comparison with Arts. 352 powers of
and 353 will show that those Articles are based substantiallv on s. the Goverr
102. The power conlerred on the President to ensure the proper furiAioning in which
of the Constitution in the discharge of the duty laid upon the Union of the Sta
to protect every State against e\:ternal aggression or internal disturbance of the Co:
and to ensure that the goDernmenl of eDetv Slo.te i.s cat"r,ed on in would be
o.ccordance uith the prooisions oJ this Constiturion rEproduces the Ministry. I
language of ss. 45 and g3 of the G.I. Ac{, 35. No doubt there were ot the S.a
-no fulrdaFqntal rights -called by that name in the G.I -Ae&.35. There
-wEre,Jrowever, Court, and
forir sections wliich were in substance fundamental rishts exercisable
though not so called,g and it is not without significance that the Proclamaiion was to hav
of Emergency did not involve a suspension of those sections, nor did in favour c
corecr such Proclamation enable legislatures to make laws which, but for the
*'|"ff they would not -have been able to make.ro Correcl drafling drafl Artic
J;{j emergency. Drafting C,
::J, -1 would have placed the emergency provisions in the Chapter on lhe
t, ""]",'r[ which ran :
"- distribution of leglslative power; and if it was intended io auttrorize
ch.pb-r m susp€nsion of fundamental rights and the making of laws which but
'"-'." f9r the emergency could not have been made because of these rights, "It sh.ll
that provision should have been inserted either in Part Itr of the Constitution
or incorporated as a prouiso to the Arlicle on the distribution of legislative Draft Arti<
power fundamental rights act as a letter on legislative power.
- sincewould
Such drafting have led to a clearer understanding, of the nature
Article, tk
a report oI
of the powers now grouped together in Part XVItr of our' Constitution. had arisen
29.15 It has been observed at different places in this book that the on in acc.(
additions made by the Drafling Committee, and accepted by the Constituent so satisfied
Assembly, to the framework oI the C.L Ac.t, 35, leave much to b€ the functior
desired as a matter of drafting, and the legislative history of Arts. 29.16 Whe
355 and 356 lurnishes one further example. The draft Constitution of the
Indiatt was submitted to the President of the Constituent Assembly Constit
of hdia by Dr. Ambedkar. In a covering letter dated 21 Feb., 1948, said:
he wrote, inter alia, "Now I c

''In preparinS the Dralt, th€ Draltd Committee was of course expected to (ollov tl I remembe
lhe adI[inistr.
the decisions taked ty the Constituent Assembly or by the vadous CorDmittees appoiDtad to be Iound
by the Constituent Assembly. This tlle DraItrDg CoEmiltee has endeavouled to do s hi! att€otic
lar as possible. There were, however, sorre matiers in respect ol which the DraftiES the United St
Committee lelt it Decessary to suggest cerlaio changes- A11 such changes have beeo indicat€d Corlstilution- ll
in the &alt by uodcrlining or sideliniog lhe relevent portioDs. Core hos also ben la'rct
by lhe drcJtiitg commilze to insert o loot nolp erplaining Lfu redson, lor eDetV sltch The referer
charole. 12(ilalics
supplied) 4, s.4 oI
Articles 2?? and 278 appear in Part )Ctr of the Draft Constitution, would be cr
entitled "Emergency Provisions". Those Articles are side-lined, but no of the rcpub

e See I)hiiubho DeDisingh Gohil \. tumbav (1955) I S.C-R. 691 at Dp. 695-?, Ior s. 29e. See !3 Shir. R
Shiva Rao, framing o,I dios Conslifutton - A Stud,, p. 1?1,-Ior ss. 275, 29? and 298. r4 ShaDa I
l0 This supports my vicw that lhe orry power during an emergerrcy cre.at€d er€n by rf,rr a 15 Ftor!! O
.'xtcrnal aggression, which ParliameDt and the Unioo should have ts the power to legislate in respe€,t in oddition, t
16 cll). I
of the three Lcgislative Lists and the correlpondilg power to take executile actioo in r€spect o, r7 'tbe Iri
the rratters in the thrce Lists. S€e Seervai, Em.rgenca, elt-, p. W-
tl Prepared by the Draltrng Commitlee and published under the.{uthority ol the Codstituent As.eDbly and lball Fd.
($6en ihc f.cf
of lndia in 1948. l! DraIt Constitution of India p. (iii).

\
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aql rn uorssnrsrp alqeJaplsuoc JagV 'alqBldaccBtm aueraq apli.rv Ue+
pur8uo aq1 'luaprsard aql dq paluodde Euaq.roura,rog atll Jo rno^e, q
para p sBx\ uotsraoJd leql uaqryr lnq 'acHo a^lpala rrE uaaq aAeq 01 sc
JouJa^oc aql Io acglo sr'luaurPruPd dq dluo elqestclr IRl
"q1 "{lPularo
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qEIH aql upql raqlo 'd1.roqpe a1elg ,{ue ro luaururaao5 alE1S aql P AJAI
s.remod aq1 JlasurF{ 01 Stmunsse uollau"lJord e ansst p1noJ aH .(4qrugf lacn
pue arnlelsrtrl a1els aq1 Eurpas.radns 1o .rarnod aq1 uar't8 aq P1no'r Iopa
lueprsard aq1 'uorleruqcold " qcns ,o ldtaca.r u6 uolF'Ilsuoc aql P
suorsraord aql q*,!\ ecueproccp ur uo paLrJBc aq lou plnoc alels aql P
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uasuB pEr{ uorlenlrs dlua8raua ue leql Suuelcap 41"}S e }o lorlja^oC {
dq panssr s"r\ uorlslrrBpoJd E uoqr\ luauruJoao8 uorufl aq1 1o slaaoi
aql ql!!r\ lpap BrZ '}ry gEJp put8uo sql ,(leurums alenbaPe ue q
TID( ITd I! Euol oo1 sr uorssncslp sF{ 'Ja^ar\oq :suotsl^oJd .{cuaElaura oql qllr f,Ea?
qclqdr 'uoqnllsuoc lJErq aql ]o IID< ued ur apBru sa8u8qc PalBad.r
aq1 po palrnod seq aH 'LZ Jald"qC tn uollnlllsuoC .rno 1o suorsuo{
dcueS.rerua aql ql!,yr IEap seq 'ftpr4s V s,Dtpul to
- uoltn?].tslloc
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aql {q aperu soauBqc aq1 JoJ uos"al sql rnpldxa 01 sJpaddE alou ldt
t808 NOLLIII,SNO) SEI JO SNOISIAOUd A)}ffI'43W3
3088 CONSTITUTIONAL LAw OF II\DIA

in the United States. A standard commentaryls states that although it being ca

is not possible to resurrec,t the Iull meaning of Art. 4. s. 4 and the and that
intent which moved the framers to adopt it, inlerence
"... thc obiect of the claure.eeDs clearly to have been more thaD an authorizetiod unjustifie
lor lhe Federal Govenunenl to protect States agairst lorergD invasion or internal insurr€ctioo, would b,e
a power secruingly already conlerrcd in any cas€.19 tby An. f, s. 8, cl. 15, name\., things ril
to provide Ior the calling forth of Miliua to exec\rte the laws oI the Union. suppress State Go
irEurrcclion aod repel invasion. (Several) speakers auuded to the dangcrs oI monarchy
beiog crealed peacefully as necessilat$g the provision.l carried o
''ln LuLh2r v. Eorden (l8,lg) ? I{ow. ({8 U.S.) 1, t}re Sup.Ct. established (he doctrine need for
that queslions arising (under Art. 4, s. 4) are political, not judicial, iD charac[cr and Thirdly, r

that it rests wirh Congress to decide what governDent is the established oDe in a Sta@ 356 empl
... as well as iis republican character'.20 Teroa y. Wltit2 (1869) 7 Wall ?00, 729 held of Parlia
Lhat the actioo oI the President in s€tting up provisional goverftdents at the conclusioD
of the (Civil) War was justilied, iI at all, or y as an exercise ot his powers as CorDmander-in,Chiel
committe(
and that such goverDments werc to be r€garded m€r€ly as provisronal rcgim€s to p€rlorm Constituti
lhe funclion oI goveroiDent, pending action by the Coogress."21 can be er
The Coud treated the question as a political question. The doctrine 29.18 Bu
of the political question has already been discussed in paras 25.39 to what is r
25.51 ante, but it may be stated here that in his concu.rring judgment carried or
tr lklker v. Co.m,n Douglas J. in a note to his judgment on "the does Art-
to
political question" said: "To-day would this Court hold non-justiciable secure
a suit to enjoin a govemor who, like Fidel Casi.ro, takes ever}lhirrg dialogue i
into his og'n hand, and suspends all election laws ?"13 I would agree Panilit
w"ith Douglas J. in answering the rhetorical question with a clear, "No". Friedd to tr
.

the Central
29.17 Reverting to the discussion oI Draft Article 2?8 in the Constit uent oI the Provil
ili8 (4r1. 356) Assembly, Dr. Ambedkar expressed the hope that draft Art.2?8 (now
fut. 356) rvould be a dead letter, and he added: Th2 Eot
Pandil
''I hop€ the fnst thing (the kesident) will do would be to issue a mere warning province es
.

I
lo a province that has erred that thiogs werc not happeni[g in the way in which they
were mlcnded to happen rn the Constitution. I-t that waming lails. tbe secoDd thrng Ior Tha Ho1
him lo do wil be to order an elcctioo anovriog l}le people ... to sctl.]e rBatt€rs by thcmsel!€s.
Il is only when these lwo rerredics lail, that hc rvodd resort to this A-rticle."za provinces. W
to deteEliDe-
Alth<.rugh what Dr. Ambedkar said is part of the legislative history of
fu{. 356, it cannot be used to interyret the words of An. 356. But As to the
his speech does throw some light on the nature of the power conlerred Constitutio
by Art. 356 on the President which wlll be considered more fully later- Pa/Ld.iL )
First, the Article was meant to be a last resort, as Art. 4, s. 4 oI the Constitut
the U.S. Constitution, which requires the United States to guarantee MeEber wha
tc every State a republican form of government, was to be, and had oI the Consti
ploved to be, a lasi resort. Secondly, Dr. Ambedkar's observations thal Thz IIon
the President w<)uld issue a warning is important, because such a warnulg a detailed e)
(u) The selv€s a number of purposes. It would compel the Union to specify lhe principh
r:r'ith some particularity in what respects the Govt. of the State q'as ol a provi0c!
not being carried on according to the provisions of the Constitution me elpressi
Ind;.a Act, 1
On receipt of such a warning, if the State Govt. admitted the charge
agarnst it, it could set things right. But the State Govt. rnay be able
to show to the Union Govt. that the govemment of the State was The words
of the dit
16 Congrcssior,al Edition, TI|€ Co7lsliltlion o! Lhe Uni.t d Slales, AnaiUsis t.'.nd Ltl?rpretatiot (1ti to be paid
cdn.) p.851.
le ibid. p. 851. For what lollow. iD the text. see ibid. ,n. 29.10 Irr O
r0 ibid.
.l ibrd. pp 851-2. For an inskuctiv€ discussioo ol the irDposiUoD of governrEentl upon tbe rebel
the provisi
States Iirst. by the President and. then by the Congress, see Kelly & Ilarrison, The Amerrcan Conslilulron
failure of
5th cd. pp. 411 467.
,r 369 U.S. 186, ? L.ed 2d p. 663. , :3 369 U.S. 246-8, 7 L.ed. 2d pp. 102.3. 25 Pu?rjob
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Emaq sem alEls aql ;o luaurura.ro8 aql 1eq1 Paqslqelsa 1,rop apls
aq1 fr uaaa uodn ielae aq ppom Btm.r.ren, aq1 1eq1 Jo :1qftr s8u-{r
1as 'p1p pue 'o1 paa.r8e 'uoC al€ls aq1 I ua^a uodn Palce aq PItTr
Suru.riir bq1 leql papualu uaaq a,req dp:uq ppoc 1 '.rog 'peqqsnto
osrxrraq'lo sB.{r Jo 'uoruo oql ]o sJan od aql ,o uoqdacuocsu 'sacuaJalQ
alqeuosearun 'uorlaurJolr lca]Jadur uodn pasEq se-.r\ EuruJe,yr aql leql Pa
'uor1n1r1suo3 aq1 ]o suolshord aq1 q'lr,rr ecueProcte ur uo PauJec Sureq
6808 NOlJff LSNOf, SIII JO SNOISIAOUd .ICI\ECUSI^E
3090 CONSTITUTIONAI LAW OF INDIA

it is this proYision i
.**^r @ 355 was based, namely' Art. 4' s. 4 of the US Constitution' to execute fe,
that Ait. 356 was meant to be a last resort to prese-rve
"f;;;;''r" reasonablv clear
constrtution is committed Just
for the purPo
""Liff.l;1 i'-;.li;;,i*, d.*o"t""y to which35ourwere enacted rn order to prevent
Union is to g
* '*;Si a
,aemorcv ss. 45 93 of th; G.I. Act The power grv
"s political"rrl
party using the machinery of representative governme-nt deterrent to S
i"6;-;e b'y tliat Aa "trom destroyng that maihinery,was even by peaceful lorDru, exercis
;;;, ;; aiso at the time when our Constitution
parts of the
framed' there
world had used
*""- Com-unl"t Par{y which, in other 29.21 Conside
"
a.-o"..ti" forms oI govemment only to destroy them' In S Krishnon and 356 are
i. U"aiois" Bose J. ieferred to tbis- asPect of the matter as follows: the Sojorrhatl
federalism is
Perh43 ironic.l that I sho'id slruggte 19 uPhold-
"It is _p€t"o^ l|es! lreedoms. in Iavour oI V, VoL I of
, ar"" of who' if tur""{r is to be Ecredited aDd iI the list oI their activities is incorr€ct ,
tumished to us l! a !rue- iirl+l*.Oa be tbe tust to destrov them thC. !:1 l--"i
tbe power. But I predilectioos to sway my judgmot ol the'l^
caDnot allow personal uoGtrLuuon 4' unitary featur
in Constitutiol
rr'" In d.iscussing the scope of Art. 356, the morginal no'e is important' constitution tl
*pot-e oi ior it reoroi'uces lhe'Chapler heodings of the G'I Act 35' "Provisions so as to rob
ffi* ; ;;;i failure oI Constitutional Machinery in states" Machine-ry to
"li:. :iiu'i
*'ii il -
or that provision of the
them . and
.i i*.--."t does not ordinarily fail this
multilarious activities'
the Union an
-*","".",1i C"riJit,rtit" is violated, in the couise of the State's
Iot the Dor,
#.*t" Til-iil;;iiG oi State Policy, Ytlch a1l "provisions -example, ol the Constitution" s- 91 of tbe (
;ffitf";X; fumish the clearest instance of this. For it would be absurd to such matte
io-'iGg."i tt"t it St"t" Gont. fid not carry -out the Directive of
'iI-Ji",ii gg.1" -p"olicv contained" in Art. 4? relating to the prohibition of intoxicating
""*",.,}i "To attach .
hNe i'rt'd' of constitutional
['--'r- t-;i it- """ u" said tbat therJ was a failure its legislative
enumerated Pow(
Ifidships'opimo
il";-),jt;; it tt" St.t". The State has merely exercjsed but would pr-ti(
po*.t G p.rmitting the use of intoxicating liquor. trnder liquor licensing
-ft
L-.1- ."a Sat"e mght bona fide corie- to the conclusion that the h Attabari
"
;i.;hr"tit" of ptohluitiln might be attended.. wrth greater evils,', and in a concurrl
cause gr€ater injirry to the people, than the evils which are undoubtedly ''the w.idest '
bv th6 cbnsumftiln'of intolcating liquor' The enactmenl of namely, freer
fi;-l8ih ei"""a-""t to'U.S' Constitution introducing
"toa""Za total Prohibition commercial it
in th. Unit"d States and the subsequentptofl" repeal of tbat amendment said:
[, in -ih; Zi"t Amendmeni show that fhe of the United States ''The argu.E
;;*; t, that the evils of prohibition were. greater^than
il" "oo"iuiion
ot a"i"L. The working of prohiEition in a numb€r of States of th! view wLi
""*
i., t.rdi, _
-orruption with its extensive dlstilatlon of r]licit and deleterious liquor,
the among the police and the lampering with ponch witnesses The impac't t
L, th" gr:".a ,io *t"ot to believe that future exPeriments
"'oudt -
will be more successfulr of the States
to hear Aul<
e,r- rs 29.20 When the Constitution intends to make a single-
transaction amount Autailobile I
&p:-y t" a failure of constitutional machinery it expressly does so' llnlcle By a maior
-ffi,fi:I i"sz[U, <2)-;d (3)-;p;wers lhe Union Government to grve diregti-ons Gajendragadlt
- .;*fi b .- S"tu ," therein irovided. Adicle 3653t provides that the failure judges reiecl
''H;t; ;; ""-"f, *itfr' ". i" eive etrect to the directions given by tlrc. p{o1t propounded
ff"il-[I ;d..'T# d"*titrtit"'r".x"i it t"*t't for the. President to hold that view propoul
dirct,n there has b€en i"if-*" oi constitutional machinery' The reason for Cose;
" "The CoEti
2s (195I) S.C.R. 62I' ('51) ASC. 3Or' 2e (1951) SCR at p 654' the Coastitutio
o iir""'t"uf ebstairErs obiect to prohibiuoo becalse
-;i-'i.i,,i.."ii; the evrls uhrch ir brinps in its wake 5I€
-e"Jt'"i- CobstitutioD. D.
;?*'-fi;*,i;;"i" ii-*" are cornrpLion"in the police aod
-u; end a disr€spect lor the law_
in oubl_ic services-EH;
""'1"
"' 5i;ir,:'ia;. i ofi"iti,i t" iiLr,, or Lo si& elle:t !o'. drrccrioni sipen bu the union' 32 (l 896
stat4 has tailed a "#ei
_ where anv ""!irfi; 't;,7 *i rr. or ro give ellecr to. any d.recLrons_ given in tlleit 3. (l96i
.".,;li''"r-,i" ;;. or "o6ri t,,io" ,"a". an"y ot t}e provisrons oI rhe colerDr6eot
constrtutio!,
ol
35 (r 96:
:i;iG i;*ili rJ- tr,e p.!sia."taccordance _rn which the
t" iai',r,ii i-Jil.ri"i, has lns9n constitutior' 36 (1 963
iiistll'..i,rrot [. "".'i"d -' io with the provisions oI this
 0e
,t
se
eoil f,SV (29.)dI6t Uf,S I (e96I)
ccz d re isv (T9.)'C88 l? uf,s T (196I) t'!
-z.ez (I9.) 608 uf,s I (196I) ie
csv (968I)
a
'8tt f,V ?8 E
Igt d P!q! $
'uo!l$!1stroJ
F
i-
aW spq s€ sra^{od ulBlrot osF e^?q uoruII aql Io nfu: iT,- t-ln 'ft""'"" aq)
!}l,p,r-L,.t:o prapat e 1o o.,i'1c"T plf i'ii" rql ^\er^ .n d:6)t lsnul auo uon$nsuo)
Suqaidrald q pse s4els 1o uo,u1 t 'sr'"1pu1 r"q1 T lrv 'q stres Jlaslr uon$ns1joC aqJ"
: acDc 5t
attqou.otnz aql (n Pa^rosqo f s"(I 'Y S "f I{P}!S I-q -P'P:":1:.ii^f:i F
r*o r,i rlalr,v, lqi a"ii.r"l.i u1 'aioj uDqDrtv aql P?Py10^:::". u
_'!,.y"qs paltalar sadPnr .!
psu u oJraururot pu" ap'rl 16 uropaeg aq] lo 't\o]f"1.I9!A tqt ^q
uorF,reoJ oqt IIE lnq :..Pa5!r9l'i', t"^ aql 14 1 relpeFe'rpuateS
go lt '*3''DqDIlv
,. *.,il! r,i i'.r"inin ia?pnt i-uoisrcap a.,i8pnt 6q, t.g 9r---l ]o Aluoleur E rtg -.P
, rEr.P.r dq, .acD. |..DOr/|I:t, aqt ur aql raPlsuocar ol PUE c,asoc arqouplnv ,
i:'li*til ,,,,"' *"iroi,roi 'i 'ptt 1uoqlsofog) uodsuDrJ aitqourolnv rsaq ol
,*,tdlilltf H*I"'_1'nr3,l",Hxr*,i1f#riTl,:#iJ.""diT"'",1:FJ"li; 3
E
3I{l Jo os Jo uoflou 'ra
!r.. prrolf! aq lsnul $lsls luruodEoJ- qrlq'l ma r$ Jo
^1u3!aE
prt{slraqr aqros ,""p"rd k* ljroj aqr 'tq Parqd uoqqardrolut eql Aur 14 9l
rJ?don
"o
qnrEls ? Jo lqi a"ap'iip' "i 1ui"'e Aw u1--- auo' 'nrq ^ '\aF G
l",q-""r"ri ",'i" l'r4
'ql ,,{t'l; .rri'sp;a;"' ipnouas 'nar" snn 'leql lueuln8r€ atLL"
!8
'$rai"r
: PIes E
arrrrraur8onl Suu.rn.ruoc SIll Io asrnoJ aql ul 'asJnoJJalul lBtcJau[uoJ E
;J r,;;dfiL-lb-".p*q ioituoc'uo'yql1p'td---u'to.g uropae.g'dlaureu P
;as.rnoc.refur pue ac.raururoS '5per1 ;o tuopaag aql lo ,!r!\j'I^ lsaPvi\ aql" .
:p5punodo'td Btn'r:ncuoc e tn
'ralpl PaUBc aq ol atueJ leqrn lua1u?Irr!
'oC oal uogoNlv vI
F
'1 qiqg l..aso3 l.l"oq1.,?lv at47,,1 ,2tuossy
^'pl1 -h
6 'sa n^oJd erll to .{u.Iouolne eql BJnreld Pr}o'{ lnq
^ 'uortr'do sdrqsprdl irl
(uottntllsuoo aq1 al) lrv.,ii'i" ru'"'pu"rq ir ol ^orlsoPlou
nq -rq-^Fo sls'r'\od pel?raornu'
uodn Parr-Juor F
nrrS .,'p1no,*'16 1o 1i'"oqwi aql^reruoc
sll io tuaoi)lddns
"pii*3
* " 'q,,uit aln oi uorlrnrlsuoc rol{p duP qrqle oJ ' t
'"io'a P:aue3- P
u,Lreu 'i,i :1salal(n uEtDEue) to ,{lqeuotlsanbun aJalY\ sE sJalleru qcns o'l
-acead,, F
-/^:l',-'# ',,r.*"no8 poo8 pud''ap"io uotln'1r1suoJ u?IP?uec aql Jo 16 ':
a\t tol -f
'{.i.?JX ;; sprom le.rjuaa iqr p-"tr.q [r,-9? _{}_ljd.^::1]" -tuotutuloo
,,rrDr, . u .,rn..,,rr ',n o,roruo'.roi 'ua.,- ?lv uI snqJ. sal"'ls sql Pue uoruI) aql
ua{l 9] {-
""'* Ij:':: ,i"""^,ri* "r"^ba jq1 ro- rro,inqt:1irp p.repal aq'1 Ao'r1sap snq] Pu" ol sE os E
,.'r,ilT,"'l ,.";iri"j e.raqds qn1'ai ,turouolne rar{l Io sal€}s aql qor I
Danrlsuot aq rorruEJ qin ut/ Jo sprol\ PJauat aPLt aql uollnlllsuoc !
'',t1puora5i
i"r"p.1 , u1 le.rapa; flqelndstput "I 1t!t{^ *oI:I]"Yo9--I
G
ie.rnleiy asoql;o acu5saic aq1 q1r'a'r uorpllsuoc rno uI salnleal A.rBlrun
prn l o't o1 a'rnpe1 e Jo llnsal. aql s! pus lca ocur .sr F
rl
"qi'j.reduroc 'IoA '4
.!\arA s,ortlsnf Jalqc aql 1sql banprqns sr 1 'uo111pa s1ql ]o I )
i'o'lq iardeu,.r ino rii ,{rinr sirosea.r JoJ '..lrr'loP Palale'{r,, sr ursrTgJaPa}
il';ll,'J ;i;;;ii""o"' "r .ino .it rtqi'ni",n aq1 passa-rdxJ '1'3 Eag 'aso-3 uDq?sDrDu aql
!:i.::l * "-"iinrii"uoo ini, '1o ahreri le.rapal aqr {q papoddns ar€ 998 PUP tt
-'.i:'T-i qSg .s1ry yo 7rolqq arr1e1u3a1 aq1 Iuog ul{rerp suollEJaPlsuoC I?'6e F
ilt
'Ja,d.rod Pue dluoqlne s,"l oC uorurl aql Jo asrcraxa lnJalol
/gaP 01 lou 'sl^oc a181S luaJla'laP !
qs aql ul ureql o1 uar,t8 suollrallP :1-t11,{q -ol
luarJlllns P paJaplsuoJ se,n g9g luaPlsaJd eqf o1 uarr8 Ja'$od aqJ !
j.r,roi-^,tes"irau- aq1 Eutsn ,{q s.trq u.vro s'll ol paga altt -ol fl uorun
aql roJ !
.qi-it e 'se'nn'ba: siel li.rapa; Eutpcexa J9 -::9gld iI
udruh aur "oirr*"ro suolloarlp aql ol aJqalPaqosry 'srtiel IBraPaJ alncaxa o1 I
sFIl
l"rJp"1 aleieaji ou'8uraq araqi asnecaq 'snollqo sI uotsl^ord
"",r,i3a,
r608 NOI,LTLIJISNO) SIII JO SNOISIAOUd A)IGICUSIrI
3092 CONSTITUTIONAI I,AW OF INDIA

Unioo itself- One oI the 8lrevaoces Eade on behalt of the ml€rvening-'States. betor€ rE I however
,"ii tfrut ttre malorily view"$ tle Aliobqrr Tea Co Case did not give suffrcreot iEpal.c problems,
to the power ol'thi States under the Inaian Constitution to raise r€venue !y tares unero the nec'es:
ifr. ineiO"ti". heads entusted to them' in ioterpreliDg the .series of artides reldiDg the schen
'corDmerce and intercourse in Part )([II of the Constitutioo "3'
trade,
unprecede
Later, aiter critically examining the widest view prbpounded by Sbah the meml
J., S. K. Das J. said : party goi
''II the widest vlew is acc'epted then' ther€ would be lor a'll practical - purPce'' - I State by
end ot Stit€ autonomy even within $e ii'elds allotted to them under the dstnbutroo d showing '
oo*.." bv orlr Consututio0 .. . II b€ held lhat every law Dade by t]rc bgrst'lut?
ir Stut. *ti.t has repercussion on taritts. Iiceosing, marketing regulatio pric'e
".,r'rsas.d coorrd 29.23 An
;L--" ;;;i hav; the prdvious sanction oI lhe Pr€stdent, theo the in Coostitution in so rr the gover
as rt sives pt".,.rv po*er-io tft St"t"" aoa Stat' Irgislatur6 the lields alocar€d
of the C
to them would be roeanindess "3S
Corrlcil and our its gover
t"b 29.D It is clear fiom the judgments of the ofPrivy an Article ought no' right obvi
mn'r*oru Suo.Ct. cited above, that the literal meaning a Constit
h*'H il-be siven to it if it practicallv destroys thi autonomy of the States'
c"ii'"'.^ i; tli" lonnection. it mav be not;d that ii the framers of our Constitution the Uniol
Executive
.f'"fiH1 ft"a i"t""a"d th"t th" Union should be able to supervise and interfer€ and exect
!:t:'".!..11 ; ihe administration of States to secure good government, the hamers
*'""H*I But the
*oJa l-"* a unitarv Constitution for India with a large devolution
the proD
lll:T:
*'** oi-"-"-*". - "aopted
i"Jo* of the Slates. The very fac't that the framers enac'ted
cannot ca
,- t!a"."i constitutionwith a Parliamentaiy form of govemmeat for tbe machineq
Union and the States shows that intemd sovereignty was to be- druded the Unior
betvreen the Union and the States. A literal construction of the wrde in a Sta
s"neral words of Ad. 356 which could enabl'e the Union Executive provision
i.-""i-"t the root of the democratic parliamentary form of govemment
in the States must be reiected in favour of a construction whlch would the purPr
oreserve that form of q'ovemment. The exercise of that power Eust on accorl
*#'-:*jX':
*ij'r""'i [.-tlr"lt.a io ". t.ltu." oi corutitutio4jl-naq!14q5[',.that is' to preservirg of the U
Jr the parliamenta'rv form of goverrimint fuoml-nternal subversron' or from is genera
''-- - '
"'*-::"1':::. aluuerate deidlock creited bv a party or a group of parties'. or the powt
from a deadlock adsing ffom an indecisive electoral verdict wNch makes dillerent
impossible' {gain' Power under
tt" "".tyit g on of govErnment practicallygovernnenls
whire the of States have been 29.24 w
att. SSd -""y be e-xercised
conducted t6" p.foC oi ti-" lt disregard ot the Constitution and The fa
tt. lr*, "" happ6ned " during the Emergeircy'- It -was the--apprehend$
-April. held in 19i
this'power in ihe letter- d;ted 18, 197?, -which the
"""."i".'ot
fio-. Uirri"t t, tli". Ctt*"" Singh addressed 6 the Chief Ministers of Bihar. Utta

iiSi"i"., *tti"t g"ue riie to the Pijothon Cose'.to be presently considered'

rn whrcn
-''#iif"il No doubt it is-not -possible to define precisely
'be
the situations secured 4
"LLTf"fl,; tne power conferred'ti art. aSO ca1 exeicised; but.it is possible'
_
India the(
-",.-H'f, negaii.,rely to state the situations in which the- power cannot be exercrsed. agair:st 35r
'""''iX# in'snlruitins p"rU;""i and the Union and'the State [regislature and
tbat
States. Ao(
Assemblies
T*l-5
*"* Si"G C,"t t".- *itt great powers, the Constitution did not guarantee
Ecctioo! r
ti;y *;l- u. GJ"ty'ofexercised.3e Nor did- the.democratic Constitution assume thst by the Ja
the representativ". in" people and the process w-ould Mr. Chara
be free from human failings and defects Any goverrunent ot any pourrcar to the Ch
fu;;Je u co"rrontEa with harsh chiri&s and may make ertors and l{imac
bf iudsment in making its choice' The Civil Service must be Cr-vel
;;.J;;3ilili; *rr"rt -i"tua". responsibilitv for taking decisions
Govcrnor
whicb States mer
rn"y, it thu-"ft"t light, be seen to be mistaken' Interference of Nlimsters' the Union

I s.C.R. at p. 5ll.
3? (1963) ss (1963) I SCR at Pp 52{'25' 40 See
n !**6.1t r-[na v Lanbe (188?) App cas sis "t p sg,'i and to place s.liair {! (19
." ; e:J;-;;.' "7 ID.v L "".a .;*;,v;;-;ii i"].n*' ^"u would be an eror "-" (it'lb'
-
43 See
supplied) of Rajasth
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(pularo) r0t rsul"8c ICI ''trv rapon Uno) aorardns aqt q qlns Pu6rrc PalI a oq! PrrorEE {
xls aqrprJq aq pFDr suorr.ale qsa4 lPqr os at"rs aql a (osslP 01 tnE
^Ruresry
aql ashpe pFoqs rq rpql relqn4N rerq] q3?a lo..uonsr.ptslroc (a$) lo, (P.)P|l{tl -
lets,nJlI^I .aroH a(0 'ralal ar0 q pale]s n os"ar ar0 loJ gr (Feperd FrFqf, tl
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^ Fco[ uo trFno, pu "l"orf
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^lluau"llred
o^nets64 Io uorp.rnp aql PaPuaEa Peq luadPuefiv Puzl aq| 'u},s eAeq e { se 'Pdv {
6 .saql ur pauonJuq, sauls.r4nl lsararo) 'ra\a^roH suoqr{a 116I aqr 14 ogt {
se sleas egl pamr* qrr,qrn 'ssaduol eql ,o uonra(o, Ielo't lsoqlP uE se,rr ar€$ qI
Io s4sls 6 u! 'uorls q z''(P^!cdsar slBas 0t PGP Iz Jo lno i?es 0 PUe t E{ T.
;"1*'*T..**r*f t"$8,;"'."1".x',#Y;il"ff q9,ffi,,9:t'I"El
rlsPlpuer 3s..6uoc .plns P lou lqsaperd Pqrss.lH puB suEx.rRII 'q"tund 'qsaPcrd-r.rln {
urorJ Arolr! propaP eplFpoq ? .{q .ra,iod 14 tnd s?,ttr steo"f eqJ D.d I
e.rDo 'ruasleIled ,o tho ldems s"^1 lqPuPc .rN ,(q P{ '^ued ^rrzdrsarEooc .qr '4rI t
,rn ,o arnoll aql ol uoncal. aqt q : asaqt AD rq areln assi 't?ql Io slrt, tr
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a alarqJ? o1 pau8rsep Jaarod Jo asrcraxa due 'parraJuoc $ raaod
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.rarnod aq1 a{errl oJ. 'uoqnlFrroC mo }o suolslAoJd aq1 o1 Er4p.Ianr f II
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,&au[IJer[ Ieuor1rlIlsuof, Io aJn[e] e ]o asBc aq1 w lEql arnsua ol uolun I
lo .Laolnd e sI alE6 aql Jo aq1 o1 EtnpuodsauoC '^raqql
^'Wqe!t
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alqs s - n?ll,lqoll e ol 'pafqns sr uorln'IlsuoC rno Jo suolsrootd tl
01 6u1pro""o aluls B ]o luauru.ra.ro8 aq1 uo l(.r:Ec o1 lqEpl aq1 |
'uor1exe1 Eupnlcrn tr 1s!.I uI sJallerrr o'l padsar q1m Ja,$od aallnJaxe
arlqsrEal a^rsnlrxa a^flI sal"ls aq1 puy d:etrtpnf aql PUP aAlt]\){I
aq1 'a.rn1e1srtr1 aql ',(laureu 'sluauruedap 1ea$ aarql aAsq 'uorun {
a{r 'salPls aqJ 'sal"ls aql PUP uorulf aq1 ro} qpq uorFlllsuoct
srllP'luor e$ul Jo uorlnlr'lsuoc aq1 leq1 p8I aql Iuoq s,t\ou ,(lsnot,rqo {
$q.L 'uorln1rlsuoC aql ,o suor$AoJd aql o1 Eurp.roace lueuru.ra,rol !
uo d.rrec ol aFlS lqdp
Jo aql sazn:Eoca.r 'uollnllsuoC egl I
998 ',lrv
suorsraord aq1 o1 Etrlp.rocca
^raaa uo paureJ s a1elg f.ra,le 1o luauru.Iaao8 |
lEql arnras ol uoruO aql uo {1np e Ernsodun ,tq ggg alJluv qI
..'oE o1 papualut ara,n {aql sE tlno8 lou ala,n sErm11 1eql,, Eurr-
se lueuru.ra.loE rn 'luaJar{u s8rnurocpoqs asaql ol Euula;ar ,(q a{
aql q atng s.luaprs"rd e asodun ol aJluaC aql 1e 'luarrruJa^oE f{
rrdro s'[ ol paddB ol a'lBls B uI uolltsoddo oqt Jo sJaqlrlarll {
'alels aql o1 sar.rnfur paluaPaJa.{
.ro1 qEnoua 'lou sr I 'aro1araql ^Ued
osnac salndsrp Jar{lo pue Ieulsnpur pue lueuu.ra.LoE 1o sauaqcs {
^pur
alerolsrp deur ser-qdo:1se1ec [BrnpN suolslrap ur{g tu-qel }o { -
pue Ilqrqrsuodsal Io osues e Jo sluea:as [^lc aql qoJ PUB ^ltssaJau
'suatt!
alea.rc r(eur uorlsJlsruurpE dep-ol'l(ep qrns I'II 'PaPuo'lur flam ra^ar{
t60s NOLLILLTSNO] tH,r JO SNOISTAOUd A)r{tou3]lrir
3094 CoNSTITUTIoNAL LAw or INDIA

4a The case ol 0r€ six Statc6 '6 that tl

in the said letter and/or dissolving r'he said Assembly sard to ha!€ beeo E'& Utr
based on Mr. Ctt"'"t' si'fr:""i:fr'u]L'"t-
*!'ii *a sb"lement
" The directive" u'as seid to codr'it
Assem
the Union l,aw Mbi"t'r' Sf'*u eh"it'"'
-*"t- p"uu'*-had. also been tiled t'v IL!'' by its
threat to take
ol ""ti.n
the Puniab
'ii"ii;;;:;;btvi tE u"a'i1 e't' ?
"'a"i'1ti'5id that' *!e lirc'r to
tbat a
roembers
n-"*i"uii L"t i" "!"e{8 rigit to
rhe leuer allected their Fq.rg 356(1)
;rliiir"'-,t" r"-a"r"uG ","a
"receiving salariei as such members' in Ar
--,f,. "trp" ot
the suits filed by thc a con
e*ri--".y 29.25 A preliminary obiecltion was taken-1-31. -that the sllegatio-o itr S.tate
obrp.tbn b States wer€ not fut. because the
-"irriiir-"bi"--urrdel between the Govt' of IndL c,
,",,I:ifl" ,"ri!'i"-il'dil"
;rod6"d and the said St"t"" i"-io ";i'efii;J a"i- ai"-p"t".
-a,i-'legal'
right the states as such' fG House
*#;''l{fi -of of the ststes h8d b€6 to oP
fr;.";d;;",il-aii ilt'.r,J#tn"T-a"v"rigtrt" up to
f, Ts",#
itr,H"ffi";,*t'.;rtip; Xf-j:**,.y**,X;*ffi f ii,ffi
in this volume' it need
when
has been t rUy ai"""ituilil^ p*" zi'-i+ J
alone.
""qg' bvB
not be considered here' Fazal
suu-i*pm 29.26 The submissions on behall of
the plaintilfs and the Petiuon€E 29.29
Md. bY $€ Were .
not t
imDendins E{i!
lettlr discloced the -onlY.ryasorls lor the uo6n
(o) Ilr' Charan sndl's'tr,i'i""irii., the god
uv!
under Art. 356 r.Uo*"a ffJ J o" rrgi"t"ri* Assemblies -Purview
ol A|l-
anu
srared in tlle t.rter, and"'oli 6iiai'*.-i."
p"i-t /oci€ outside the objec
iA: ib) i" "iy- ;;,i: *
::,;i]Ir"-y;{':l ',f nf:,"#ffi* il"ffiI"t't**Tr,*ffi
-
was
Hi;i.g'"'#r",?U1H;[5'iii-d; con<rrtion p-recedent. ii-i"uii'a r"r si*' tr' to
odt.ds si\,€o i,' tr'' il-t.sii"-u'" purvt* ot Alt 354' the prc'po!€d --tio those
fi;'; i;;i; oi 't'"-ij"itli-*it"
'"to Jlde
and unconsuttrlional as Asse
29.27 Apart from the preliminary obiection tha-t the suits r'vere nd in0
t* el seqq' th€ Unio
$bm*$o* maintainable which ;; f,;;;-;;;ii"red' in para.25.'24 obie<
fj;%* ffi;#;;:;i ;;il;i;e fi;t ii;-q*"ti"e it'i"t' ua to be determined
"' "" *'"
this
tiit""iio"--"oi"". calling for ac'tion under Art
f-";';;ii"e ;ir"th";-, -l'-t-ti"i"tt" *d- h"d - been mrdc
fid.e:
to b,
356 w8s inherentlf "'p'"tslv- w!
."" i*t*.[r" "tt
iv dtt"-i6o(ii tt tt'" ti'rat 1cti9'n
of the Pr€sident eith€
not [t indirec'tly assarled by"challrcnging-
.
ii Pres
non-iustlciable.
"oUa
*r""ii-in[i "i "right not sctually produce the appreh il:Xr6 TheI
ii,iJ riti"iiiJiil"'i;;'MfiJ""'!',i"t"**t
- iid not show that anythrnq lide
falling outside th" ;;'i;il;' A'i
- 35:6 ;* taken into account' and satis
l-ostlv' the mere
consequently, th" pL;iiI; t'"a "" of action and
intimation .t
'
*'tr*' the- . nurview ;f when
t'u-""*"
*ri}t ^;;d';--A''t' tut' 35,&
"t'"Jiliiil"
did not iustirv p';#;ifi! :;ii;; a56' i"
tuture th' 29.3
quel
iacts indicated' and possiH5r
situation might bt':;;;"t'S "*Eit^-;^;-itt * and
other fac'ts. for action under An' JJo (ba<
be dissohred ma)
29.28 The submission that the t'€gislative Assemblies could-notboth Houser
'fi;" iil i{;il;;i;" p.."r"-"ii." had been approved^bv bad
;ft;rffi "":t;"'-i"1Jet"qFr:*l{r,,,S-fi
did not deal with the submissior ilf gLf tf"T"*,n? ofs
of satas'
il#; d.; j"""ii-p",tv *'"-i" " miriontv. in the. Council,
v; j""ff;.1.','la*fi
that

[[fr,9lHl:?',ffi',xj'*""x:l'.:"*;"i;if
[:""6ffi"n-;i- strG. rr," q'""iio" *t'i"tt arose v/as whether oie the
its
bvi
I

i;i-il'"th";"t on the approvel oI

Proclamaiion was dependent Gth the resuI
two Houses, or whether it *"J nto i--"tfi"t" effect'
,lr Ther€ was a slight dilierence in Ole reliels claired by the 6 Stetes but it i! not marefEl
to our discussioo. ('??) ASC aa.p 1372
as see (19?8) I S.CR. at pp lr-rd,
;i iis:?di-i siR.;p.rd. ('??) Asc at Pp' 13723'
 qlti eql r(q Dsursrn uaeq seq Jalleor
'lurltrDue V 1c qn5 ;s
irv 1o 191 ls
" P"J na\1.."33.ii'Sfi le lS I (8LBT)
lralqns rraraJrlp
e qlL$ Sr4IeeP (q) n.ons ^\ao (816I) 0s I FPa|lo po t! t
cHL i':"'5&:i!,.,.:r:ii (8L6Tl It
u)s I
ii rere u3S (81,61) 8r
erl6, "1"'i ?S'Y"|ffi l? lt)s I (816T) ri msar aql qTr
i i?ri le Uf,S I Jq1 1o P,rord
aql Jaqlaqa
)r s1I .(ti pa,rordde
(11 sosad rq
P3le
^,loIs( d
sp:e,Ylot se/tl 'lr lsql o
pal,3r€ q a'le^Pd qrH/$ I
ro lserelur 'q'lnd.qraqloue r?t{)
^n.erPp
{tsnol rrFur d aqr 'sal"ls Io IlJ
]1 p a.rraIuor uaaq qrugtnPne{ P.srJr
4q sIH {-rolrsoda) s1! J1 ,&o1n'|els Io dlsnor,rqo ualt
I aq ,ftor
uer{l raqlo 1.elqo Jo) {ls dulor 01 PIES aq aqJ.. oql{\ 'f tEel\
(Pneq anrard saPnP q1lel Peq Jo ldaauoc
uo11el
uo9$4IaP sasnorr qpq
I{T"J Peq p
'r{1le} P8q Io Eur11rl1 deur
:P!8s I{lltlrs aP Jord Pa losslP aq
rq srh?r41s1P lnoql
L$ asn 01 lmoc ? PBa!
lr (qI"J
sl, adsE luaraglP Eu
peq) Io d.ra,r leq1 'l.i.al^ ar lErclpn
futld acuoc IEIIIIIIEJ eos$ ser\ ll PEq)
1Sa11
Pu9 ,{lqrssod Pue
IrcrlruE] '1C 'drig aq1 ,tq Pa
'raAa.&1o H aq1{qP asEr uollsanb aql uaqr\ aJ
nr ^sap { o'lou qBnoq{E suoJ qFIq ]o auo sE,a{r sal€ls oqt uI 0€'62
'acue'uo durr Puor1n1t1 pa1-rsenb ro Pla PaI s Jo :lJo'fraIIIEq 'ggt 'uv lo
aq1 'uol 'ln',ll]suoJ IeJa aAaJ uaql PlrE aJaur aql {
ralE sluaur8Pn! aql o1 uo'l d.ropelsqes
ssncsrP
DUE .IMOJJE
uadapq suolls anb asiql as u1 saPy' brrqfue teq
sruaru8Pnl aql lo dpuaP:asEc aql u! slu aur8pnl aq1}OIB IAA S",ari aJaql ',{lpuoJas'{nr
aJou aq Plnoln 1r lnq qns aql uo uorssnJSlp ?utluer aPt'v' dra.'t E
'UV dq 'luaPlso€i ssotoJd e ;t
D1 pul uo suoISSrUr ssardxa aql ,{q ro '999 raqlla sBrr luaPlsaI
a9L (s)9S€'|rv
Io uorsr,lo.rd aql ]o asnscoq
aPBUr uaaq
aq 1 uo ParJaJuoJ
rax'od aq1 ]o arnl€u luaraqr4 'ap { o'tpur aq 01
Srno8 ruog PaPnl rard UnoC aq1 sB.a/l ',lJV JaPrm
'uolls anb aq1 olur Otl 1 I '(lPuoreg
'pe] suot lSa nb PasrBr leql isaptJ
IO DaururJaPP
pe,ro.rd s"rA uollcE "lsJtJ :uols ssxq.n s s!t{1 Lorun aql 'b
qsqq€lsa sgll urqd eq1 PtP. qJ rqm'tcalqo
o'lolrJ lo asea raql ,tq Pallr-urad lou sa{r mB.I aql ul pu alal{i s
uo esore suol'ls anb o,q1 99t'}ry arau a sel^ luaura'l8ls s ,ra1srutw sallqluassv
uB AJncas 01 ac ualard aq1 PIIE 'sa1els asoql ]o salels asor{l uon,. Faodord
ral'tal aq1 ul ua^rF suosea.r 01 raPro uI
P uE ,{FBd aql lo] arncas uI qsEc,, 01 arn a.ols (r)
1e1sr3r1 eq1 Jo loJ,luot rqndod 8uo.r'1s aq1 uo. ou, s"rfi 'qr-rq,i selF[@
m r(1.re6 e'1eue f aql roI Ioddns l of) uo[ul) aq'I ro] 'ap xJ D1uo oonltutrDtl r.
Palue .tr ,(Pe4
eiEuEf aq1 ,{q Pauuol ossrP aql l€ql Ipalqo
ot{1 Io uor'lnl Pauale arql uollela
'uv Io rdJalut u" sDsID.tl n
sa[qur assv aarlels rBal UO ISSIuIqNS aqt 'gge nbnca irPoa
aql q1!/1' dn Pa{uI Se/tt sasnoH q10q
s€ 1A luau€rlrsd ]o e{ ^q
lou
Ja1lelU € se Pa'Pa[or ar{l ssalun pa^lossIP
Pue /liBl ]o uo!'lE urelJold s,lua PIsald 6?'62
p a,ro.rddi uaaq Peq 'lElll uols srulqns aql qFnoq{V s:auorlrpd
aAI',lqs lBal aql
Pln oo sarlqluassv rs'f lIV IBz€J
rle.tr8eqg
dq 61"1' e1dn9 PuB Jla su4q lo] f ^q Paau 1! 'a
,(q P ue oj'r BIF ..ri1ufi alu€s aq1 d1P11ue1 s{n$ 1r'auo[B ltolun 'L
sr'I PnqcEJp ro} u€qc Iq ua {el sen\ ./flola plnoc aJro] tn sefr 1r uaqm 'uY JaPrm
uosEal leql lE Balg
aq o1 Plaq aq 10u anbasuoJ
due 'd1 1u 'Pue ' aullt teql o1 dn uaaq Psrl
ua{8 1 uol1t" o1
uorlEluElcord aq 1 JaPun d1.rea1c sqJ
'sqluou o'{\1 IAIJE alerado JoI 'qcns
ar'rlerado serrr 1[ lEql luEalu .to 3u[tBI asnoH 8!pul Io '
aql a,lo.rdd e o1 Butsnlar
p aseal 11 lEql s" ,r\ uollEtuqJold ,}! APE uI (t)99€ uv 'dlalluoJ oq1 ut uollarafi
aq'l 1Bq1 rEalc aAr1e1st8a1 a1e15 aql Iq P
raq 1ra ]o paJla ,(po aq1 (q saqquassv a
uo'(I) ggg FV JaPun 'Iuaprsard aql 01 luaPacar d uolllPuoc uI
or
Jo uorlnlosslP Jo
rax'od aq 1 JO aslcJax a rsuoc
uotle:aP E a{e uro 1 999 'uv
asno H raqla dq ,r,o.rdde roJ (1)990 01
^ladoJd
ledql
luauleIue d Io dlo asnoH qrBa Io F Drql Pa
,{q
Eurqlou s"lt\ araql 'luaurEIlJE de 1nd o1 ,(ro1e a!t qo se .tr 1r qFnoqlPs1! lPqi ^q ol
s ulsluoc
UV JAPun Panssl uor1?uslcor aql ,(q Pa,ro'r dde Slnaq lou €PlE l]a
ptoq f c Eag salels Ic IlJrmoJalqrs ralar'n aruoca qpp o,ri 'salquas sv sei\ sa14s
^q
P asdEl
uo r'latuElc ord aql I r ua^a pord aql raPun auop sBqrql lPql
a l1e1stBa1 aq1 Brn,losslP
a{I'uolleru"
NOU. ILSNO] sru JO SNOISLAOUd
960t ^3iElcugns
3096 CONSTITUTIONAL LAW OF INDIA
the Cd
II a drscretionary power has been exercised for ao unsuthorised purpo6e it i! 8!E- the H
i.rDmatend whether ita repository was actiru m Sood taith or in bad laith Brr sh s dissolrti
the courts have disclairDed jurisdictioo to deterrEne whether the prescnb€d purpocer LG
in lact b€en pursued, hcause the relauooshh between the sublect matler oI tlE FE ttEy mrY '
lo be exercised and those purposes is placed wlthin the sole djs$euon oI lhe co4.&n pufpos€! t
authority (as where a power is exercisable iI it aPpears to that autbority, d iI ir i3 the questir
satislied that this is necessary or er:pedient lor the furLhera$ce ol those purposes). tb.:i
have still asserted jurisdiction to'detentrine wheth€r the autlority has in good laith endeavq,IEd being hatx
to act in accordance with the prescribed purposes. Because oI the difiiqity of provit In such a s
bad laith. it rEust be conc.eded that where such a subjective' drscretionary power is \tn td to estsbhsl
in a MinisGr oI the Cro*al. 'th€ reservatioo tor the cas€ of bad faith is hsrdty E! tbe power
than a formality'- In some legal conlexts, however, the presenc€ ol bad laith caD t
more readrly es-tabtish"d, and when estabtished, has irirportant legal consequeoc'es. Tto.' prestrmptio
unless the lurisdiction o[ the courts is exduded by very clear words, anJ iudgE€trt G prevail, ar
order procr.ried or made ftaudu.lenoy tDay be set aside. Formu.lae exPressly t kiDg 5r.t presumPtic
the nih[ !o apply lor certorari lo quash the decisr"ns ol a kibunal do nol cover c..ct app€ar prt
in whiih rnanilest llaud ls pro\red.'s3
29.31 The plaintiffs alleged mala fides in the sense that the power 29.311 Sint
was exercised by the Union Ministry frarrdulenuy, that is, to achieve reasons I<
the object of obtaining control over the Irgrslative Assemblies of severat reference
States'in order to seaure political power and advantage for the Janata so what,
Party and not for the purpose f6r which the Union Govt. believed be inquirc
that-the power under Art. 356 had been conferred. As stated in pqla ?4(2), IYlir
29.23 ab6ve, the power conlerred by Art. 356, read with Art. 355' President
is purposive. The exlercise of the power is called lor where the constitutional on an all
michiirery has failed. The purpose for which the povrer is conlerred tuLL Liqt
is to taki steps to set the machinery functioning again. To this purPos€ to staleti
the political idvantage to be gained by a politicd pady in power is own moul
irrelevant or extraneous. Taking o purela hvpotheticol cose. il it rrere and notet
established hom letters wdtten by the Home Minister to his cabinet Law Min
colleagues that the reasons which'he proposed to give did not justrly MinistrY
a diss6lution of the Legislative Assemblies of the S.tates, but such dissolution 356, lhe
should nevertheless be ordered because it was to the advantage of the Coui col
Janata Party to control as many State kgislative Assemblies as possible' see wbet
and becausi ful. 356(5) bared anv scrutiny by the cour{s. there can under Ari
be no doubt that the power under Art. 356 was to be exercised fraudulently,
that is, tor a purpo;e other than that for which it was conferred, and 29.34 Tb
therefore, the iower was exercised mala fide. If this illustration appears by emPb
rmreal, it is enough to say, first, that Watergate shows that more damaging submissio
admissions are ;ut on record and can bl produced in evidence; and, to repres
secondly, experience in the law courts shows the same thrng.-For example, Legislativ
a Stat; Ac1, imposing agricultural income-tax provided that every their oPin
of the S
aqriculturist was liible t6 pa! agricuftural income-tax if his net agricuhural
iicome exceeded Rs. X.- A c;nfidentid cyclostyled circular' issued to terselY st
all the tax assessing officers, directed them to assess the tax only on "The I
companies, whose alricultural income exceeded Rs. X, and not to assess aris€n hD' t
lndividual a€riculturi-sts whose income exceeded Rs' X. A copy of this to the nrli
circul,ar was" annexed to a Writ Petition fited by a Company in the levels ol -
Bombay High Court. As the circular was whoUy indefensible, the mistake in porrer
was admitted and the circular withdrawn. clinate ol
and order'
29.32 However, there may be a case ln vr'hich i! i1 alleged that the a Iresb ryP
po*.. ,naer Art. 356 was- exercised fraudulently which is not as simple
i in th" illustration considered above. A situation may exist' or is 51 s./
reasonably believed to exist, which would in fact- justifu action under 55 (19i
ert. 5SO,'ana such action vr'as required to set righl the way in which 56 Ud
order ol o
5? (19:
53 S. A. de Smith, &di.ial Reai.e@ o! Adiiinistrati].v- Action,3rd ed pp 293'4' (IIre loot notes 58 (I9
in th€ above passage have been omitted).
 salou lool eql,) dd pe
oolr d 13 f,sv (/.r.) 'Ie'93qrd.lErpu.3;; [:'3B r
'uoqtr^uoc ,o .rJpro
'-e6z
'lrv uon'lpsFnf qJlq,h uI ,(ear -aqt lqBH
,Crrulums e JoJ tllloJ ,r,qeadssn u? pepl^ord qcr'q^\'8}8I ":tf$T i;it"8 $ rapun uotlJE AJrlsnl. pEl
'68? d 1l) do 'li?lurs ap v s 19 st Jo 'lslxa uorlmll!
s! qJlqa All
alduns se loy^Eur
qsaq B
eBoceq pq lnq etqlssFrrd o 'pu se,rt utlala^os Prqrlod aql 01 PJ& aql lEql Patafie st l! qr
89.. PrIe
pepnpuoc lrlsFryI^l ruroH aql 'leql^ttsuo$al esaql
leql^.rolstlqo lo speq aql uo q lI raPlo
ue^6 peq ltedsa$-[P pue aruaprlM ,{tr4qrarun ,o 3lPo4P
r$e[ 01 sleeJto s?a qqq.tt iui,d s ,o rar(od ur a{Blsrur aql 'alqlsua}aPr4
ero (^) pus :ele$lcala ar{1 ,(q pera alar ^Iqe{qstuun (^!) :uonerlslt4orPB Io sta .l aql ur dueduroc B P
xlalrdoid al{t erelcarddE 1ou pp aB:e1 1e atdoad ,i?.€ asn?r ol sa
luaralJlP le acUaPIIITP lo as:r
as 3 Pa'lsaJ3 Psq uoq"qls aqr 8r{trlr aql 01 slql Jo ^q P
V 'X 'sU
erun Io 4eo4p trlsl[nsar eqr (!I) lssl"ls ^UEd aq1 uasIJB ssasse ol^doc
lou PUB 'x 'su
:to'I lusra, aql u! 'uoqcelar FnUI
SqBuorJq sat"PIpue c 1o 'suonrap sqqes aql..
snroqs ral lal s.la1sttll9\l euloll ^q uo ,(Fo xel aql ssassa- o
p€q uonenlrs Is.altodpaluapeoar&m us (!) leqt
{q PazIIgrrIlun S flasral 01 pans$ 'JeInJJlc Pal^ls.
: slrlollo] s? '[ PnqrPrPusqc
salBtrS aq1 Io IBJn[ncuEa 'lau slq I xEl-a
alan lallal aql uI ua^r8 suosa ar aqL 'Pa^losslP aq PFoqs
aql aqoarn pu PlP uorurdo .naq1 r[ra,r,a 1eq1 PaPI^oJd xe
sallqluas sv a^!1els!541 aql leq1 uolsnlcuot AA rlBIs!'arl 'aldurExa Jod tu.tql arrl"s
aq1 lBql ps} alaur aql Pue 'saqqurassv 'puB :aJuaPr^a 14 PacnPoJ
Pa8usqc PBq sJolcala ro} uraql luas e:da.r o1
roJ uorlnlllsuo 3 aql fq Paxg uoqemp IInJ aql aql 1srl1 uors$ruqns Er48eurep alour l€q1 s.{roqs
palMua aJa{r aldoed aq1 1o sea11e1uesa.rda.r Papala Eu'zIs rqdrua dq s.readde uotle.rpn[ sltll JI
aql pue 'uorlnlllstloc mo Io aJnlrnrls FraPaI aq1 aq; ig'57 pue 'PaJraJuoc sBrtl I qJ
slitllneld
^q aql ,(q paFoddns ara,Yr saptJ o'lou Io suoll8 3a1p '{IlualnpnBq paslcJaxa aq
'999 uv raPun rrBr araql 'sunoc aql
raqleqm aas 'alqrssod sB saqqu"ssv ^q a
Ja1$od Io a$craxa ap{ DlDur Jo aseJ e Paqslq€lsa '(aq1
;;';;p'.t ,q1 rq piti-"ita a.i^ - acrlou p1c1pn[ a{81 PlnolEnoc aq1 1o aEe'yue,rpe aq1 o1
suosear aq' '99t uorlnlossJp qJns |nq 'sal"ls
aql qcFp\ 1o
"1,t1
{fi- i"q1"ao1
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'1,v raPun ,o,r'-qJ;J' "- --5q1--^asr'rpes'ralsrull tr drc'I laurqEJ stg ol JalsrIIIw
aqt tlclr{iy\ uo suosear i1'o- "q1 aq lou r(er1- l:Ylels 'lm9c aq1 dq palou pue aJaA I Jl 'asD) loJ?laqlo<
aql pu" rallal aq1 ,1 ua',rp s'ib"'j'' aq1 lsql sq'}nour rrrYro sI Ja,t\od I.n dlled PclU
Llrri, ir{ou'aq1 qanoqly -$in os 'deur
'("q' 1r esarDls or asodrnd qq1 o,1, 'ureEE t
lno PuE '-"qi l"i;'d" ",,'Ptu"i"P::1-"q^.fY
rlaqt Jo""^ .lJ ee'Pl'I sronbt'l 1lag par.raluoc sI Ja lod aql
', ale1s sacrlsnl
"q - It" ""'
-J1
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,oN '^ 'u .,, p'"t '5'ii''g
paurrr'xs *" .ro""", ti'1ir;"o1"p; 1"{1 t-u-1":"' aql Pue luaPtsald 'sgt 'lJv qTr\ Pear '99
'-o-1 a,solcslP sra}slt4l^tr,t(z)tl ered uI pa1e1s ryPaua
r@@nrE arl't ot 'oAli,
"q PIno!\ .ro-la'rea"'{aqi 'acr'rpi aqt
aq
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ElEuBf aql ro] aB?IreaPB
'::F"il'fi lEra^asIo saqqurassv -aA
tr{fl*ili;l,fi #dluiiffi '":iliri,"Fllilffi{_Bi..,}f='r
tr,','0H"",1$i:-'ii,",L"*"T;; a^alqce ol 'q lsql 'Allu
ra.$od aql leql asuas *
"*,ffi l^;ru,"1;1"***{:i[ir;ff '^lluasard rsaddB iar?c .re^oi lou oP FsrqlJl I
/(",r.8 ,rrplst ,{Fsar&(. a€FEDJ
[.un sB asDC u DqtsDfou ptrB 'lIBAard
aql III uor]anlls "U-.t:-l srqJ 'uolldtunsard ro fuaudpnl iue 'spio.rr .trfJ
aql arsldslP or p".rrnb"i'q'bFo^ aauapr'ra €unlnrr/$ralo 'snqJ sauanbenror p8E rau
nmo,n asodrnd lEqr pl"d'a u'aq siq 'Iepro bql l?ql uolldumsaJ-d aq uPr ArsI peq Io eouarard
iir, 'asod.rnd ,*n , it s1i6, pa'rraJuoc sedr ra'nod eql rrN q rop, p€q ,o I
"'oi
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sr Io asuas ,qr tq-]i'lll''ir'* se,n udrpe atf--i"lfg-:t":""11lriuJ rs4a&roc .(O p uonaDslP a
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-4aq-l lo]
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pu8 "l oc ,o1rq ^t.red rged .{[?raa, s( eso&nd p36!-E$t
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NOILCIJJSNOC f,IIr JO SNOISIAOUd
t608 ^"]{SCUShItr
 3oe8
Gove
and

ffii"t-,,'*#;,ffi;il;'**t#",J41 Writ
allov
rrer,€
T':rlundamerital ot
-"" Hi1J;B-ffi
(3i
extent; that irDPon3nt
#:"ffffi:
3' :Xsl "'l'"'slti"' "*'l
"H"'iHi rights o( the pS"pt Y".T
;."i'isi' rr'"i'tt'Jl"a''a "m.r:ll
*ar
nowes 3.'
1l

#r:*;:t. *#r"^
vierned against. the Otf,l%H
]l 1993
inter
n" 29.35 On the above facts
5 the
-"qH"*niflxt.",x,ffi ,i;il"""Hi*i:ll*:lJi[t]lg on
''"'* t" dissolved' because it
li"."iii[u""--uit the. r Abn
'"ii"'ii.i- inli- bb,'t'."'"iiii"il' *i'- - ; ;' Ya: *;,'1u;.
!' J, I.
""d
was a different one: II on these facts the -Presidt
H5| Red
{.

Pltx:t+iri#"fiqit{tr*;i"fi
The rightly
Coud. the
rrgitl;Htl
wlth a clear No
snswered questron
Fbl
Emerge-ncy- Provisions ol c
lNote: Afler the above discussion of the Bench- decided very impoltad
E;;.iitr;; had been p""i"J,'t-[it
"
9-Judge
Art' in s R' Bommoi s-
q'r""t*".'"* t" t.opi,.
""a
of- 356
is set out below a
tlnion. A cntrcat examrnaGn & Bornmoi's Cose
the Post ScriPt.l
Post ScriPt : Bommai's Case

il,f ;?;"3ix$i:I;",Y"f iu"' it'i power to dissolve state lzsil

"""iff;l,lio,#l'*i1'riB"ii:"f,"*tii'ff'E
;#;;;;iil ii"Gil i',"r'ai"il-i"t
-'\,,l--;U observed that 'this rt'-
d:;;it oi a*uial"'
[t;il:":i;'il"*d"".iiGn,optt"iion-'" be a- dead letter"'r Tb' I
would never'"tbecalled-to*tirJl'ii rtre-
"; for ,the Power unda
i,l.'i.r*a i r,"-".t u"t t,*ul, constitution'
in most cases was grossly abused
356 was exercised about 90 ""a

50 ee o9?8) 1 S.C.R. at p. 1r8, ('?r) A.SC. at p. 't*co.r. ur. D(, p. 1910.

v""'' s"*""''"fi "n"i'"1*i'iv'- ae"*"t' Yogesbt I
I !':'i'-: "^ff"r] Kurd.rp S'rgh,
and Jeevar: Reddv JJ.

\
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|d J)sc('66T)s IP{"O itt
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surra1 1tn1 "1 tpeurqy a^!lqs
luplnes [q (^r) "I' le^-BCI sluau8pnl xls r't66l t{crEl^I I1 uo
fd rnt ..e r.rErDuEJ Aq fr) :para,rqap ara,,,r.,,oq
q"1"s aq1 'r u,lPrrPd acuasq' Jauq aql lOU S
ii'",i#".id 1u*a*rirn1' -Io spql
pue sdepqoq"t,i[B,r\!CI pue "q.r, adira"rilul ;qt ]o. a:l::3 "Fqt Paldnralul
""."leq ]o {a3'' rsq ?ql 1.. !1P1!'"o' arat'\ Pu€ 866I
le,n aulidiq' -i.l teoor raqruaceg- aq'1 'g or pqd
Jaqopo Io {aa.6{r lsrg ,q1 ,r, pJ3ui-riroc aso3 s,ioruutrgi ur sluaurnBle l.LrlI
't66I Jo r"a.6 t
u'\ErpqlLt aJa'\ ,ciuatu
8 oN asEC ralsue-\! sE Paraqurnu ara,\ PUE lC'llq iI1 01
'uolll]a'{ aql Pa!\o[e
lrrirr*-q1 prE ueqtse[ru o1 Eutleler suollrlad rrA\. lnq
{""pi'r6*qa!g a-q1 'sgno3 qBJg aleudo'rddr--aql u1 suollllad lgi!\
,",jc qsji,ir6 'acllou
"dqp'e4 ,o arf,L 'qsapeJd IerlJEtuIH PUP
iq faaileni,qj iem- suo-rl'eruqcoi4 asaql ar'r1qsr?a'1 puE s'luauruJa^oc I lsrneE
q"ip"r6 'usqlsBtau 1o saqqruassy ^IJPIIE^aqt tut^lossrp
"iqir1q
6608 NOUJIIIJSNO3 XlrJ JO SNOISIAOUd ,tc|'Ecusl IE
3100 CONSTITUTIONAI LAW OF INDIA

Amendment BiU 19?8 (which became the 44th Constitution Amendment Act) profd 7. The inser
an amendment of Art. 366 by inserting the definition of the words "Seqlt' in 19?6 can
and "socialist": of the Act wl
Righls Cqs€
A. 44 Anpndn|enl of Art. 366. Arl. 366 of the ConstitutioD shall be ftmumbered ar CL cD like any otb
oI that Articl€ and belore O. (2) as- so reoumbered, urc tollowing Oause shall b€ inserted, ---at: Art. 368 as
"(t) In the Preamble to this ConstitulioD, - (1) the expression Republc as qualified by the e:.pre..b
'Secular' means a Republic ilt which there is equal respect lor all religionsi and (2) the expr! ri! Coseg by Gu
'Republic' as qualfied by the expression 'Socialist', means a republic in which lhere is lre€doE &r "But we &
all forms ol eryloitation, social, political aIrd economic'.o 25 vears beloE
This proposed Amendment showed that the sponsors of the Amendment Bill fo,""l ot ihe Legistreru
it necessary to define the words "Secular" and "Socialist". The meaning proposd be deemed alsr
to deed 5od 8q
was rejected by the Rajya Sabha, presumably because the meaning attached to thirr. that tlEY
"Secular" and "Socialist" was contrary to the ordinary meanings of those words-
The CoTrcise Orford Dictionary defines "Secular" in the present context as follows: In the resul
" Secular: ct & n 3. concemed with the affairs of this worlC, not sacred, or the framers
monastic or ecclesiastical kecular afflatrs, education, music);4. sceptical of religiors 8, Reverliry
truth or opposed to religious education etc; hence secularism." pegu.liar f9{
6. Tuming to the word "Socialist" inserted by the 42nd Amendment, it may opuron ol l

be observed that the appropriation by the Soviet Union of the word "Socialistic"
B. P. Jeeva
behalf ol S.
to qualify the word "Republic" would seem to suggest that a socialist form of I agree fulll
Govemment can be a dictatorship, which is foreign to our Constitution. In fact. out by Saw
the following amendment to the Preamble was moved in the Constituent Assembly agree with
by Maulana Hasrat Mohani, namely, "We the people of India having solemnl5r Reddy J. sur
resolved to constitute India into a Union of Indian Socialistic Republic to be l,2and{
called U.I.S.R. on the lines of U.S.S.R."? This amendment was rejected as inconsistent
with our Constitution, and as directly contrary to the intention of the foamers 3 out of l(
of the Constitution. Again the word "Secular" is not precise and would itsell out 10 con<
require to be defined. "Secular" may be opposed to "religrous" in the sense conclusions
that a secular State can be a anti-religious State. Irr this sense the Constitution his judgmer
of India is not secular because the right to foeedom of religion is a guaranteed by K. Rar
fundamental right. The word "Secular" may mean that as far as the State is the extent
conclusions
concerned, it does not support any religion out of public lunds nor does it penali- of the Judt
the profession and practice of any rehgion (fu1. 25) or interfere with the right I
Bommoi's
to manage religrous institutions as provided in Ar1. 26. The secular naturc of J.- it is
our Constitution has to be gathered fiom these and other Articles of our Constitution two Sup. Ct
like the Articles relating to a corrunon citizenship (Par{ tr) and Arts. 15, 16
and 29(b). Good drafting would require that ambiguous words should not be 9. Verma
put into a Preamble without a reason and, as far as one can see, there is dispute that
no reason for putting in the word "Socialist" and the word "Secular", for the But he a&
contents of those concepts would have to be found in the enacting parts of that taken l
the Constitution, and by '\
themselves the two words suggest certain associatioLs r0. The fn
which are inconsistent rith the enacting provisions ol our Constitution. I have was wheth
dealt with the question ol the Preamble in Chapter fV at pp. 276'282 of YoL if so, to w
I of the present edition and I need not repeat here what is stated theretn. I Proclamatio
summed up the result of that discussions as follows: the justicii
"The result of the discussion ...- shows lhat the lour objectives set out in the Preamble i.? was not di
themselves ambiguoirs and they cannot throw any lighr on the Provisions oI the Constitution becausc the leamed
tbey stand in nicd of inlerpratation themse,lves."?" The lact that the Sup.Ct. iudgments wluch halt President o
referred to the Preamble have not pointed olrt thar the obiectives of the Preamble are ambiguous- is amenabl
do€s oot have the effect oI making ambiSuor.rs obiectivcs clear and distinct."
of the sco
6 See Seeruoi Constitutional l,aw of India al p. 2'l'l l.n.6 ol Vol. I oI this edition. iusticiabilt!
t C.A.D. Yol. X pp. €5'3?.
?. C, "StiI less can the preamble affecl the mcaoing oI the coactiDg words when its o\.r'n rcani4 I (104i1)
is io do'.rbt": per Lord SilEoo& in A_G- v. Prince Ernesl AuguJlus o, Harror?r (195?) A-C. .r r0 (l9ea)
p. 463i "Il is or y whcn (a preamble) conveys a clear and detinite rraning in comparison *'ith l2 ibi& pt
ielativeiy obscure or indetinite enacting words lhat the preamble may lcgitimately prevail : p€r I-od u ibid. p.
Normand, ibid. p. 466."
 t
Pro.t ,.d
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.srDnqq
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(?)
re
I
Pas
I')r'ECUStffi
NoIIT J.ISNOC SIIL JO SNOISIAOud
IOIS
E
3r02 CONSTITUTIONAL L.AW OF INDIA

it is clear that it holds that the President's Proclamation is iusticieE { th"

very much narrower lmrts than held by some of their brothei iudse!" g tbc-
J. for himseU and Kuldip Singh J. observed: "It is not disputed'beiorc Jerc
the Proclamatron ssued undei fut. 356(1) is open to iudiiial r€vierf,. Af- Pa'r !
is contended is that the scope of the review is limitea.'lb K. RamsJ thr -
dealt with justiciability of the President's Proclamation at length.ra In I rI hoB tL
sort of way K. Ramaswamy J. observed: "The question rehling to tb Gad The tr
scope and power of- the President under Art. 356 though mapped irp ytth pff J.ml
tlucket, per se it does not get immunity bom judicial reyiew".rz'Tbe nifll t 13. s
of Jeevan Reddy J. contained an elaborate discussion of justiciability of the pied:rlt
Proclamation in which he reviewed numerous cases on the p6wer of the CE conted
Executive or the President of India to issue a Proclamation lor the faihtc d Presider
constitutional machinery. Jeevan Reddy J. held that the Proclamation under Anti*r and ex(
356(1) was not immune from judicial review.rs He added that the Proclautit Presider
was justtciable to the extent indicated by him in conclusion ? which summrizl a Procla
his view on the question o! justiciability. It is submitted that the unanir assumes
decision of all the Judges that the validity of the President's Proclamation rm&
Article 356 is justiciable is correct. If the present discussion is to be kept wiu-r
t during
before
manageable limits, it is not possible to discuss at length the obsemitions b ability 1

the six judgments as to the extent of iusticiability. Nor is it possible to dilotrr devote
the rrew taken by the Judges on the correc.tneis of the Sui. Ct.'s decision b 14. A,
the Rojoslhon Cose, and whetber it required reconsideratron. the Slat
ll. Since the dismrssal of a Ministry 8nd the dissolution ot State lregisldive that he
Assemblies- and Legislative Councils, where they exist, is a serious infririgemenl he shor
of the right of the people to elect l,egislative Assemblies and the risht ;f tb€ Para L
members of the L,egislatrve Assemblies to elect Ministers commanding the ionfidence tbat t.
of the House, these considerations make it necessarv to reler to the fact thrt onw
the Constitution of India establishes a federal State. Iir a federal State, the $.de overw
L€gislatues and State Executives have a very important part to play. There n agent
a popular misconception that any feature of a Constitution which militites against before
federalism makes it quasi federal or a federal Constitution which is watered iiowrr- well
The correct position is that the federal principle must be the dominant princrple his pr
in a Constitution. Embarrassing as it is for me to say so, I have established and n
beyond reasonable doubt that in our Constitution the federal principle is the dominant the
principle and a federal situation existed in India. Sawant J. in his judgment remov
observed: "The learned author H. M. Seervai, in his commentary on the Consritu,ionol be co
Lau: of Indio (p. 166, 3rd Edition, para 5.36)!9 has summed up the federal Ilnion
nature of our Constitution by observing that the federal principle is domirrant theref
in our Constitution and the principle of federalism has not been watered down..." that a
and he reproduced verbatim conclusions (a) to (k) of para 5.34 of the Constitutional in ad
LatD oI Indio...o d,rty,
the U
12. All other Judgments, except for the Judgment of Verma J. for himself and othe
Yogeshwar Dayal J. dealt with the question of federalism. Justice Ahmadi, Jusl.ice which
Ramaswamy and Justice Jeevan Reddy held that iederalism was a basic feature was
of our Constitution. Ramaswamy J. held that federalism envisaged in the Constitution det
of India was a basic feature in which the Union of India is permanent within from
the ten'itorial limit set out in Art. I of the Constitution and is indestruc{ible an
and he set out what he considered to be the features of this federalism. In cucu
my submission the statement that federalism is a basic feature of our Constitution
is correct, but in describing the nature of federalism in our Constitution the !r
statements made by him are not correct for he has made no attempt to answer E
l5 rbid. p. 93. 16 ibrd pp. I?5-80i 20?'08 aIIirm
r; rbid. p. I?8. 18 rbrd pp.29?'98. Co're
ts In Vol. I ol the prcscnt rdldon se€ p. 301 para 5.31. aDd
!o 0994) 3 sC.C. I ar pp. Il2.ll5. (italics
 I
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NOIJ.IIIJTSNO3 SIIT JO SNOISIAOUd
t0it
 3104 coNsrrrunoNAl rAw oF rNDIA

15. Article 156 provides for the term of the office of Covemor. , dissolvin
Arl. 156: (1) The Covernor sha_[ tdd oflicc durug rhe pl€aruE oI rbe presi&nt. (2) Tbe the Hoo
Gorcru
fi &,''"d'A*":". rft*l*J",,f ,%*r:i,13
rEay, by wnting un&r his
r"reg"irig p-,i"i.ns' ;i,il haod ar
dat on wbrch he enrer.s uDoa hr o,ice:. providcd 0rat ;a;;. ff ;rj}ft#-E
entertain
-asa&
ol hi! term, conboue ro hoid o(ic€ unrrl :irf ,ii*iOrt
rrai,g rh€ epirr.ao the Higl
h;;";-;-*;;""-,";;;;;'#?ri; but not
16. In view of the gross abuse by the centri Governraent of the power
remove a Governor. in mv sutqFjiqn, ttre Constittrtion -"niiia- to original
make the tenure of otficc ' of- a cou""no" - , fi;;'i;;; U""i-[iiJi iX Cou.1/S{
from office by impeachnent ry ,re Siail L;:lin;::-;; i.,t1."t ii"
to his remov.l
rir,". provided for
months-
the impeachment and removat of the Resident 7i hA;';;"; Arri;i" Stii would
(b). read with Article 61. Such ," i';;^;;
-J"irfi"i."r""t the Governor,s exceed
oal.h that he would serwe the people "-;;J;; '
of tt Si"i" ,f *fri"l he is the Govemor
trom becoming a mockery. " byc
17. A number of judges considered the effect of Art. ?4(2) which provides tbat 19.
the question whether anv. and if so what, advice *as'ienaerea it Mftiil the Pres
to the President shal noi be inquired -t" ; ;;;--C";: eiicle oront
a sirnilar- provision, namely, that ihe question ,"*ifr".-*V, '*a if *t63(3) -i*I"i
contains T
the
was tendered by Ministeiii to rhe iovirnor ';ii"ii';;'il;qr"J i,Lt, Ministry
;io';-;;
9o-! .Tt " scope and effect of Ar. ?4(2), ;;t;; &laions rzs and t24 of contin
i\;",l"i1iln, 1:i, i:i. "i#""i,a1i"f ,, ":i.\t
f_li,m
advice it any. which was tendered to ahe-irresid;;i- J,iJ-nothirre. "*
t
,"ffi ,fi
fr ."fi:
to
It my
rn
any
reasons wourd have to be given for the advice t.nalr.,r, gii"r.;;;-'3',,;;
-ilizl-,ii" reasons
no bar to the production dI 9u itre ;"t.;J-;" "o ;hiH-iie aavice was based. his J
Of.course-the privilege available u"aer Secs. fZi t[. fria."* eJ,
both stand on a different foo-t_ing 8nd could be "ra-iZf'"f d.ho" Art. ?4. Til the
same view was expressed bv Verina and yogeswar"i^i-J
[, S.*;;i
DavJ.l.t,o. -"J*ii"ffa"itj the dis
and
.Kuldip Fu,gI .Ll (paidtan
"
question at length, in paras 20i "1. to "o""uffiI.
n"i#i"-v
.r. ""d -n""-"
the law
210 of hIs judgment. fi" to
taken the same as his brother iudges. But tre fis&i"sea f; ;;vi[;;
"pp""""-
under. the Evidence
the clalm
',ew Act with refer6ncE to the claim -foi-p"Gi"iiiri, ^ir,"" ol th€
interest. irnmunity and came to tte i.me cln"lu.il ff;il;'i
*J,ifi On the
9! gutti,c
or rroros Cpnyn! y. ii;:; tbe diss
:1-e .rn Rimmer 0968) A.C. gS0. It is submitted ibai
the vrew ta*en by the-_judges as to the effect of Sec. ?4(2) is correct anJ be revi
rne sarne would appty -alrequally of his
to the provisions of Art. 163(3).
question considered by- the_ six judges was whether any reliefs itisn
lL 3"
can _l-.t wh€n
be grven tbe validity of the presidentt
-
hoclamation is chalhnsed ln
- I
ano wnether the court can srant an inte m stay agafiifTotfift -tsesh electi;rs.
Further, whether the LegisLi'ture assot"ea by i'l*-E;id;;'. proclamation can of the
be revived il the Presidenfs proclamation is set'aside. Thes" ir".tiri*E?ili*it "Tbe
at considerable .length by the judges, and it is not possible G- consider the various Ihroogb
l_:I9 and qu:" by. tb€m, for their conclusions. I vrill state briefly the conflicturg the 59r.h
Coagcs
vrews then state which of the views is in my submission, cbrrect. As statel
:?r["rtPTgT^ J
agr.eed lrith conctusions t. ant f
6 ;I-th,e' ai; i;*i;-; the
ot P. -u. lbwant J. with which. Jeev$ &ddy J. ageed. This question hes- bee;
connected with centre-slate relations. on the c6nneae-d question wLether a presiaent
c,an dissolve, the
ksrslatule without having obtained- ihe' app-"at oi boih -i[ 20. In
Houses of the legislature, s8want and- Kuldip Singh JJ.15 hela- th8t the president and no
could not take the action of dissorving the'Legisiature uy a procr"r"ation- the dis
Art. 356 tiu at least botb the Houses or FarLameni tia lpp.6r.a ot trii p.'oaauraiio" ""Jer the
issued by trim under fut. 3b6(f ). With this view pandi;i J. agreed, as did Jee;; holding
Reddy and Agrawal JJ. Jeevan Reddy J. also took the;; iLt U" p"o.t dismis
-"6o"
a ibid. p. E0. 23r ibid. p. E5. 25r
:{ ibid. pp. 108 & 109. 25 ibid. p. 123. I
 '86T d Hq! rz 96-96I dd P!q! rz
d P!q! ,z eoz'zoc 'dd Prq! r 'sA d P!q! .ez
€0a
qt@Fo+I
'arg]o olln PapnPular lou sI l(rNrurN Pafguslp r!aa{' PlP t
aur DuB DaarAaJ tou sr am1elsEa1 pailbssrp aql 'P!P^14 uotlgruqJoJd aq1 Eulp1otl qx*'ElPo+I
aql
yiil3 aurla.rangTyiro3 {arg aq1 uo 'ro '1uaureq.re6 -dq uolleruqcord s.luaPlsaJd aql .ryr DrEE
io riaorddesrp 5qr iro teqt rtralA aql syoddns 01dl8uo'I1s 'ft1qrtry{ PassusrP EaF+I n
'p.ri*., o1 !'ue imlelsraai Pallossm 1{1 a^!^ar aPeru sa,rr luaupuarrrB ou Pue -o rtpq ,o
iauin xrs pipuaurt s8,Yr
99t 1-rv'qEniqt leq'I pBJ or{1 'uors$urqns ^uI uI '0? EatlFard t q
Drl trq uof!
ar{r 'p{cnpqar poo,s rua",sra oc pa ourcr (ar{1) ,* T;lTli''frIi""**loii$l,'d$S$ m@n1 aqt
^roln'pl'
ru-rrri-rra Tq ir..l"*Pord .qt Io P ordd;stP so lero (c)99c 1'Y. ol lqtrb'Iq sr.* lurrPuact'r--ou.eP-tls FFF 3Y Paq
srea,t I iseqi 3ui:np irlu*3 .ql ls l.,*od u ;re,rr serusd 1etalpd ste$uoJ-uou r+nll aued stelE'lro3 aql ft}rrgEoJ
eq1 ur5! peiy icv ruearpuaurv ql89 eql PuB lcv luaqrPueurv !19, -al]- lt,cv ruauPuaurv $6i rrcrn^ n r
:ii r*ir.p"*iv qlit aqr :pv r"t-pir#y'puzr eqr 'r'v ruat"puasrv ql0c s,uoonlrsuoc a$ I€noJql
radn g p+u*ie se,n ps11 996 'lrv PuE s rn Ll uern a'out p'poaqrP se'it uonnlnstDJ aq1.' I FSDa{P all
tt ElEutP
.aIP{a_!sF{
: luatuBpnl' aq1 1o
LtZ eJed ln PrBs ssq a8pnl pau.real aql lel{1t\ Fo las ol a)m Ja^a!\oq Ppo'tr I pcr&ra;p n
t]'i",r"o- oue ta8or :reatc a:e sluaiun8ie aq1 'uorssnuqns '(ur uI 'seJed asoql uI q{ar {rr! r
pi i',ir.rb"'"r""-"aru io,$eurums alerncaB PuE Sauq e a'rr8 ol alqrssod lou sI 1I
irql iirr"i-rqatt o" "q1 o1 sered ul s'luaunfue aq.1 sT luaur8pnt sq 1o P PAIIOJ
ni d inZ se.rea u uorlsSnu "ir'9g7 aql1g7 paraPlsuoc r([nJorBc 'f '{ure'$seureg 'PaAhaJ aq
5ir-1qs6J1-peqoss-rp aql PuP acrgo o1r4 PapnPular aq uB' saupnrrur Pa^losslP aql , a$
pdiui tr btri'a,rr& 'uotr"*iioo.r4 s,fuap1sa,r4 aql uo raq'Iaq'Y\ uollsanb aq1 uo a$
"q ltagaud ro1
er-lrraxe l'sor1,r4 dn -rq .rapqq pus Drnod p alnnur ltqFF! P1,'o'rr sarlp"., *Tf +'"ry]$$i rAlq ol
;;;"fce inqtil'parlolrt'riraorenria apisim:o +rsur. $oq Eol'{do cllqnd P ,Ialq8qug aql
.aiopr!1a:aq
""r*it;'*it5i.qo
p{"ls ss salu. poonnlq oc poe r(lurrueun sTreerc lnq 'umJ_ sat{l ut\oP plq '|trq
pr.8ts
,{po lo., 9Ee 'tnY raPon ^q PaaptslP
'qr
prD- 3il;Fr"in- lerrortr|lnruoc .ql to acel .h
[i B.a{;i" gfi irv ,o ze trv "l ,o
""tuluz uv ,ePun rer1t!e, ^tqErassv
eql p 3tlrriia 'qr rll ''L&'uy
fnod
pr;"ii-".n-roy acglns tnq ';1eqA s.n{l ut lluaParold Jo Etoqp1d aJ€ ar{1.. 'ql
rji ,ir ",o
,frn",-nrq, "oirarna ?.aq E6
: trn,r.rasqo r(q 1uaur8Pn1 s.n1 t trr (z)tl
papnlJuoc all s'luaru8pnt aq1 lo giz pue Ji?- sered rn a,re8 aq q'Iqi$ suossar aq 'a.DIu
lqi .iol 'rr"ii-- ! 'g iu"^iuiru--1o juauSpnJ Eutluassp aq1 uorsmlqns dru ur
-aqr
;r**a'p.i ?qruasi1p pus sluauitpnt {lrroteur aq1 paraprsuoc Eupeg'qfua1 fue 1u TUJ t,tt ut
'j. ,t-ti,"irurig yd- luislp rvar'r aI{, pue sluaur8pnl' '{'uo[eur aq1 raprsuoc ol P'flFll
i.reluauruoc pcr1r.rc s1q1 rn alqtssod pu s! lI 'arolaq s8 uorpunJ ol Panuquot Ic ur op
pue paarAar i"i ar"1i1'qla1 piqossrp aql pua raclgo q PapnPr4ar sem dl1qr414
'1C'dnS aql
lassriusrp aql 'uollnllsuoC arp Jo i8 i* Sgi 'SZZ salaluv raPun t
ioTpue 1.rno3 qE111 aql {q PIpn,4 PIaq ?Tag uollBrrEcord s.luaPrsard aq1 uo ro
'1uaureq.re4 Io sasnoH aql qpq {q Pa^oJdde Eulaq'}ou uollBruBlcoJd s,luaPlsaJd aql
ri" r"qr ppt qcq,ri-s1u-arn8prit ,(tuoteur aql ulog PquasslP f ,(ure'Yrseueu '6t
.e2.,'uorlenlls puotldacxa uB 'aslnoc Jo '$ qtlrlr$ 191 asnqa dq
palqdualuoc uollenls aql q ldacx9 .rea,( auo puot(aq a,rr,ms ']ouusc uorlEruElcoJd
iq1 lua,ta due ut pue pau"rlJed fq FAoJddB aql JaUe. uaAa sqluorr xrs Paacxa Eo.d (I
pu saoP uolpurBlJold aql ]o aJll aql asnecaq suollBJllduoc lalaaas alealo PIno'[
iap"o uitr.1,4 ue-qcni Eurlued alnl!\ uolllld urd\ aql ,o Eutsodstp loN 'sqluour t
@rql o'l o/r1l qn{llrYr rallEur aq1 ;o asodqp ol a^sq -llErls unoc aulardns/}'noc
qEfH aql passed sr JapJo trE qJns alar{1$ asal qcns AJaAa uI 1ng ruJal FrIInuo
sI puo^aq anurluq) ol aql r$oIP ol sa Jauuaur I qcns q lou 1nq
,ii{uiassy'aq1 1o uorplosdrp ^lqruassv
aq1 ,(e1s osp uec }moC aurardns/}mo3 q8ql aq1 +
r.-(
'sPu"uaP uoqen'[s aql I Pua as"J aleLldoJdde uE uI PAoJddA qJnS JagB osIB sB - ---*.-l
.! r EdFs
luaurell;d,(q uorleruelco.r4 aql Io le^ordd€ aJoJaq uala uotylad 1u,r B qcns rn?1.ralua
ol Pallllua aq Plno..{r noc aqJ,, leql JEalc I aPBIII aq 'ra^a^\oH 'sasno}I aql
q1o{jo p"o.rdai aqt lnoq}rr pampo.rlur aq lou Pporls arnplsr8rl aq1 tur,rlosstp
s0rs NOLUUIISNO) SH.L JO SNOISIAOUd A}\ECUSnS
3f06 CoNSTITUTIoNAL LAw oF INDIA

principle of lnterpretation 25. The

21. It is necessary to observe at this place thal. cardinal intention of its tuamers brings in
li' t}r. itii"i""l"of o* con"utt'tion - is to find out the In the p
when thev enacted those ptouitio"" o" 26 November 1949 This principle applies
-
that intention is not XXVItrA
$6' ;"
-
ffTi,'"'i;L;;il;;;-Ai.- ongrnallv enacted And
the Legi
.rfa^rarl in rnv manner bv the fact thit the provisions of Art' 356 have been importan
Constituti6n- Art. 356 carurot be interpreted
-li-tf"
Iril".ii- "ill"li',.'ilJ'*.ff"g "t "ur of intercormected ''Notwi
in isolation, but
-""tiJd: must o. -a.rpr"tiJd
"Jiti.r.rit -iU" of a large numberConstitution
"o"ttxt which or either I
lil pr-apf"-'"pplr"J-io pro"i"loi".of -a open' mulipartv presented I

;;-;;.[i;J;p.ct. ihis is so #iause the Constitution of a free' by the app

uk -J; piovides for the Aovemance of our countrv and
the provisiorx
;;-;I;; t":poUii"a' tn't is"'of or affictlng GovemmenL ' Parliamer
for such goveman"" m,l"t n 1950, pr
"es"i"riiv "Emergency. Provisions"'
22. Article 356 appears in Part XVItr which is entitled of the provisions
of a Chi
ffi. ;i;';;;a!i";l *"u t"coOi"a aid to the interpretation
"emeigency" "condition which w
in that part. In the present ttt" word means- etc.
"",it"*1,
il.:ffi; ifi;;d'i"i"it""t'i""tli. rt.""ro"t tr'"-t"n"sident's power io issue a Proclamation
t*"tco-g that nower' the President 26. The
under Art. 356 is an
"-.tg"n;i'io;""
has to deal with situations *hi:H tfi;; iil''t"iiii" i["tg""t" and' it is submitted considert
Court staved the operation Sup. Ct.
that it would defeat the pttp";;' --ifril-"uu-i""io"ii.a
;d:;lyi'U Art'.356
is reirrfor.ei bv fut' 356(3) of the e
a,r"i
of a Proclamation und".p.o"lu,iliioo Le bid before in that !
which provides: "nr"rv it""i-ila"i tr'ii.Atticl' "h"tl wasag
each House of Parliament *;';i'U' "i""pt *f"tu it
is. a Proclanation revoking
at the expiration two months unless paPer w
a Drevious Proclamatton, to -of resolutions of both t
tf#ffi ilili;;';iti';i-;;;:ri-i; """"" "iuitt" been approved.bv Court,
i" Trt.-ii?t5i'pio,.ide"' tor a longer period
ff;;;;-ih"t"i" Art. 32S
Houses of parliament.,, 'Ll Th"
-s-"irr'"- if the g
;i"";;"r"l' by iil" * The. proviso did not come into
-
"t"t"d
play in the present case. n." loirniii"t-Giat Art' 356(3) shows
that the President's 329G) r
proclamation comes mto to.cJ-im-J"tely. The duty which Art' 356(3) imposes would k
is to put if,"-ptt"f"titlt"
'B"--il'.s- Cosebefor6 each-House of Parliament' an inter
on the President President did so' The after he:
and in the Proclamations i""'"a'u lhe immedidtely
consequence of the proctamat'i;; ;d-* Art. 356 coming
into force discharg(
iJ'ii:1"#L;i"dil [;;;bu:JiJ.-tn Lei.r.tive ciuncir srand dissorved. in EngL
State Irgislatues - as. follows:
be postl
23. Article 1?2 provides for the duration ofurthe
"-i1);;;; sooner dissolved' shall continue
for holdi
G;l"ii* e.".-urv-oi e"trv sat"'-oi-i" ess that har
for five vears hom the a"t"' ti^t meeting and no longer and to Electi
iil 'l;ii"iti" -'ii" -;; p';i'i" '-i il p'io'i
;i'il;.atJ ""pp]oi"ltl'a ,;; how soon
shall ope-rate as a dissolution in the (
l,i'tri=J'iGll#trr." '""",i-""!- i a lesislature mav, be
or in a vear or two out it w
;iJi;J."ii"#y be di""ohJit'--d -onlh" ot 6 months . the elect
or three or four years. Altil;gh i; ;;;; duration of a lesislature is fixed
the minimum a"iJiti" i"""""";* qq unlsrown'- It is true 2?. In
that '
at 5 vears. they ho)
td'"iJil;;&;-;-;#;;;'p-;;;ipubricmonevHowever'ifthe it. i"g,"l"U;" Assemblv, then' Court c
Chief Minister advises the i"r:T; ti' ix:ofr" be obhs;d to order a dissolution' the Higl
I'i".ii,t'ifiil, '*"J; ";;;",;" A;ernor would legisl,atu:
24. Article .l"ot
1?4 provides tor sessions 'ilmeState Legislature' prorogation and
of the tbe majt
dissolution. "(l)The Governot"'"t'"-u
" --Sr"t" to timE summon the House or
ehctions
each House of the kgrstatirt t-tft" to meet at such time and place
between its last sitting in 28. Sin
as he thinks fit, but six rno*ttiitt--"tttii not int-ervene in the next session"' judgmer
one session and the ilzrte "oo"i"t"'a -m"ei" t"t it" first sitting
afl"r -its dssolution date' the first oJ Pokt
It follows that when " "","''ffitLi*" tf *'" on which the Assembly "tb€ la!
sittins must be called *,tf*''?*- 'i't"t'ft"
'"r."tiiri"i.
date
is reasonably rs not
i.^'iirut, N.t-"uv"irt"1iti*J'"i t" new Assembty called
taken the oat\ Preicribed ror them and the ord
;,i;'#;i;:-;;;.^i"h"";.;;'-L; th; sp""t"r Deputy speaker have been
olficers of the legistature, "";;";. "na
uv thu ;-;;L."of the Assemblv'
"iiii^^
 EMERGM{CY PROVISIONS OF THE CONSTITUTION 3107
25. The dissolution of the legislative Assembly and the election of a foesh Assembly
brings into play the provisions of Part XV of our Constitution rclati!'g Elections.
In t6e presint volume, I have discussed topics dealing with Pan XV-toin Chapter
XX\ruA ("Eections") and I need ncdrrqreat what has been stated therein. Once
the Legislature is dissolved, Pad XV entitled "Elections" comes into play. Ttre
ardd important thing to note is the provision of Art. 329, namely.
''Notwilhsrandrnq anlthtng i[ Uus Conslitution.
(d '" (b) No election !o cithcr House ol ParliarDent
or erther House ol'kidatur€ ol e Stat€ shan be called rn question except by a! electioo Petition
presetrtedto such euthority .t!d i! such trianlEr as m.y be provided lor by or under aay law rEade
by the apprqri.te L.8ideture".
Parliament has enacted such a law in the Representation of the People Act.
1950, providing for matters connected with elections including the appointment
of a Clrief Eleaion Commissioner and other Commissioners, for corrupt practices
which would disqualify a member elected as a resuh of such corrupt practices,
etc.
I 26. The whole scheme of Part XV of our Constitution relating to elec'tions wss
considered by the Sup'Ct' in N. P. Ponnusuami v. Rztufl.ing OfJicer'ro The
Sup.Ct. held- that in psrt XV the word "Election" is used in the wide sense
3s6(3) of'the entire proc€ss culminating in th€ candidate being elected and it was used
belore in that sense'in fu1. 329(b). lbe Sup.Ct. held further that whatever the matter
was a ground lor ca.lling en election in question, and rejection of a nominstion
p"xr i"" such a grourid, should not be heard at interlocutory stage before, the
Lo'r.t, Urt shouH [e heard in 8ny matrner in which and at stage- -at-- which
perird e"t. bZgGl prescribed. This was tLe necessary implication of Art' 329(b), for
srounds to question an election could be urged at an earlier stage, Art'
if the "wou]d
s 329(b) be diprived of its meaning and content. Any other construction
rIOP.a S€S would lead to a conflic't of lrrisdictions. The Courts m&y express one view. at
an interlocutory stsge and the Election Tlibunal may expr€ss an opposite Yiew
so. The atter hearing tle eld-ction Petition- Again having regard. to the important lt-:l-1:
ai""t.rg.a
-n.rgj""a6y -lrai" that
'*atheir,legistrature in dem6cratic co.rntries, it has been:ecognised- both
i" all disputes arisurg o-{- of . the Elections should
follows: t" ooitooned till elections are over io as not to dislocate the timeinSchedule
coDtinue t." fiaai"n the elections. It is submitted that Ramaswamy J. was right holding
anC if,"t t.riis resard to the provisions oI Part XV of our Constitution relating
to Electionf, no*stay-his can be fuanted against t!9 President dissolvrng the^legtslature
Et bc in the exercise of powei under Article 356, because as the Sup' Ct -pointed
ct o o"t ii *outa produce a conllict of jurisdictions. Further, such a stay- would dislocate
itud th" irocess which must b! completed within the prescribed time schedule.
trrE that 2?, In
"i.J;r"l
the result the majority judgments in Bomrnoi's Cose are incorrect r'./hen
--fioU
if tb€ tfr"V that on the Fiesideni's -Proclamation beurg ch{e1ged- as invalid'. the
tL€a- C",lrt grant an interirn stay against the holding of fresh elections, and on
ilisoffiD- "."
tfr.-fireh bolrt or the Sup. Ct. h;ldini that the elections were invalid, the dissolved
giio d i;;l;fu ;;" revived ant the dissok6d Ministry was reinducted into olfice Further'
Eq.- c itIm"io.ity view is opposed to the whole scheme of our Constitution for holding
rad Dbc. elections for Parliament and State legislatures.
I sittiq ir 28. since sawant J. for himsell and Kuldip Singh J. has relied on the "instructive
t s€asiI-- v Federotion
that'
i'a"i.* oi th" P"ki"t n Supreme Court in Muhhammod ShoriJ observed
'o]-pl[itt"r':,i
r. tb it f must deal'urith it b efly. Salant himself
r Asdly the pakistan constitution
;,im trrg""g" of the provisions of the relevant articl€s of-J,.
Edlt is not Eouihed tle same terms." The question in that case was whether
'rbal distiolving the N;tiond Assembly on 29 May 1988
-"i tl"inkesident
iL--"ra"r
bata 3l (1088) Lsh. ?25.
m (1952) s.c.R.218, ('52) A.sc.64 P.lr.
I
3108 CONSTITIJTIONAL LAW OF INDIA

was in accordance with the powers conlerred on him under Art. S!(ZXL) a
the Constltution which ran as iollowssz:
bke ourr
, 58.(2) Not\*ithsbnding. c{ntairled in clause (2) oI Arricle {0, tb€ prc.ild. ol
ln his discetioD where lrl his opriaron.... (o).'. (b) e rri r, -Llr
-.n)'thin8 ordinr
drssorv('the Natj-ona.l Ass€mbly law is a
arisen ln which the covern Deot oI the Fe&ratioo can'ot b€ carrpd on rn accorilaoce *iO rL dooms.
o[ the Constitutio, and .n app€.I to the electorat€ is necessary.,' orold
The provisions of Article 48(2) are 8s follows: ess€nlio
''Notwrthstanding anythDg cootsin€d io d&!e (1), tbe presid€Dt sbell Et -
io hi, da.rrt- of at
respect ot :.r)y loau,€r in rrsp€ct ot wtridr hc i! empowe*d by the CorBtitution to do ro (d tL -
valroty oI anythiAg done by th€ Prelideht ltl bI! &scrcUon rhrll not be called lD quctio qr
grouDd whatsever). - "r
29. It urill be noticed that under Art. 58(2) the President's power is to dir.dr
the National. Assemb-ly (the Goi.t. of the Federation) and not the gcry'€rr- sjrld.
of a State of the Federation. Under Article 356 o{ our Constitution, tE herH this be
has power to dissolve State l,egislatures. Secondly, the President of pabrirn b deleal
power to act in his discretion and the validity of anything done by the heiH rD€h
in the exercise of this discretion as empowerd Uy ttr6 Constitilion sbrt
be ca.lled rr- question "on any grounci whatsover." i'he power exercised by tb
Presldent of India is not exercised in his discretion bui on the a&lce i b
Council of Ministers, and, in most cases, on a Report of the Govemc d & 30.1
State. It is submitted that th€ iudgment of the Sup.h. of Pakistan on proitir rea
radically different from the provisions of An. 356 of our Constitution cairnd b powe
us in determining the scope and ambit of the President's Proelamation rnd a res
Art. 356. In interpreting the nature of the discretion of the President oI prtriO. peno
the learned Chief Justice said that the President could not exercise his dirolfi- and
on "a fancy or a whim". No such question arises in India because the herib with
acts on the advice of his Cormcil oI Ministers, and the Council has befcc f (po
the Report of the Govemor or other information about the govemance d tb beg
State. Nov.
Cose
consi
with
("Mi
\,vOf
Cos
The
Ccn
peri
of
editi
stat
add
que
the
orde
by

32 099{) 3 s.c.c. p. 96