Separation of Powers- The Myth and the Reality by Dr. Bimal Jalan

Embar go: 16 Januar y 2006 ( 6 P . M. )

SEPARATION OF POWERS: THE MYTH AND THE REALITY 

By

Bi malJal an

Third Nani A. Palkhivala Palkhivala Memorial Le!"re  #an"ar$ %&&'

1

Nani A. Palkhivala Memorial Tr"(! M"m)ai Embargo: 16 January 2006 (6 P.M.) *SEPARATION *SEPARATION OF POWERS: P OWERS: THE MYTH AND THE REALITY+ ,$  ,imal #alan It is a great privilege for me to eliver t!e "!ir #ani $. Pal%!ivala Memorial &e'ture before t!is istinguis!e auien'e. I am grateful to Mr. Malegam one of t!e most t!oug!tful an ei'ate persons t!at I %no for giving me t!is opportunity.

Mr.

Pal%!ivala*s

unparallele

an

multifarious

'ontributions to our national life are of 'ourse ell %non to  you.

$s an eminent layer layer !o guare our '!eris!e

freeoms t!roug! a i+i'ult perio in our emo'rati' !istory !istory !is most

'elebrate

an

seminal

'ontribution

as

in

t!e

 Kesavananda  Kesavananda 'ase  'ase in 1,- an its politi'al aftermat!. $lt!oug! t!e memory of Mr. #ani Pal%!ivala ill be '!eris!e by us an generat generation ions s yet unbor unborn n for !is une/ua une/uall lle e a'!iev a'!ieveme ement nt as a layer in efen'e of freeom !is 'ontributions in many ot!er el els s ere ere e/ua e/uall lly y rema remar% r%ab able le..

!o !o 'an 'an forg forget et !is annu annual al

spee'!es on t!e nion 3uget in t!e vast 44I grouns5. "!ese spee' pee'!e !es s ere ere att attene ene  by a larg large e numbe umberr of 'on 'on'ern 'erne e 'itiens in aition to ell7%non intelle'tuals an professionals in i+erent al%s of life. 8is !umility an a''essibility a''essibility as also also

2

legenary as as !is role in promoting several prominent '!aritable institutions non7governmental organiations an t!in% tan%s.

"oay t!e ay of !is birt! is a ay to pay !omage to !is memory an remember !is 'ountless a'!ievements as an Inian . It is also a ay !en e s!oul re9e't on an 'elebrate t!e virtues of our emo'rati' system. It is useful to re'all t!at at t!e time of our inepenen'e in 1,- t!ere as orlie s%epti'ism about t!e future of Inia as a unite emo'rati' republi'.

4onsiering its immense regional linguisti' an

religious iversity t!ere as a iesprea vie t!at Inia mig!t soon brea%7up or at least go ba'% to an aut!oritarian regime of  some %in.

It is a tribute to t!e saga'ity an farsig!teness of t!e framers of our 4onstitution t!at toay as e loo% ba'% Inia !as not only survive as a emo'ra'y but espite some areas of  'on'ern it !as on orl7ie amiration as one of t!e fastest groing eveloping 'ountries it! strong so'ial 'ultural an e'onomi' bons a'ross regions. "!is oul not !ave been possible but for t!e 'ontribution mae by persons li%e Mr. Pal%!ivala to strengt!en t!e founations of a emo'rati' an se'ular Inia.

;n t!is o''asion it! your permission I oul li%e to es'!e t!e professional temptation to give a is'ourse on t!e state of Inia*s e'onomy or its e'onomi' future< Instea I propose to brie9y s!are some t!oug!ts it! you on a larger

3

politi'al an 'onstitutional issue !i'! gure prominently in t!e publi' ebate in Mr. Pal%!ivala*s time namely t!at of t!e =>eparation of Poers? beteen legislature an t!e @ui'iary in our 'ountry. "!e issue !as on'e again been ebate re'ently an !as attra'te t!e attention of some of t!e leaing legal luminaries an politi'al leaers. It as also t!e prin'ipal item on t!e agena of t!e Emergent 4onferen'e of Presiing ;+i'ers of  &egislative 3oies in Mar'! 200A.

I s!oul 'larify t!at unli%e several ot!ers !o !ave re'ently 'ommente upon t!is sub@e't my vies are largely t!at of a

'itien7observer !o

!as no

parti'ular

professional

ba'%groun in la or in ele'toral politi's. I am sure you ill agree t!at 'onstitutional issues on t!e fun'tioning of our emo'ra'y are far too important to be left to be etermine by legal an a'aemi' eBperts institutions involve.

or for t!at matter by t!e

$s 'itiens e !ave an e/ual if not

greater sta%e in t!e out'ome of t!e re'ent ebate on separation of poers among t!e vital organs of our >tate.

 $s is ell7%non t!e ebate about t!e o'trine of  separation of poers an eBa'tly !at it involves is as ol as t!e 4onstitution itself. 4onstituent $ssembly.

It as eBtensively ebate in t!e It also gure in various @ugments

!ane on by t!e >upreme 4ourt after t!e 4onstitution as aopte.

$lt!oug! t!e 'ontroversy on ening t!e pre'ise

bounaries of poers of i+erent institutions !as

re'urre

from time to time t!ere is nonet!eless a broa agreement among all 'on'erne on some funamental points.

4

"!us

t!e

o'trine

of

=separation

of

poers?

is

a'%nolege as an integral part of t!e basi' features of our 4onstitution.

It is also 'ommonly agree t!at all t!e t!ree

organs of t!e >tate i.e. t!e &egislature t!e Jui'iary an t!e EBe'utive are boun by an sub@e't to t!e provisions of t!e 4onstitution

!i'!

emar'ates

t!eir

respe'tive

poers

 @urisi'tions responsibilities an relations!ip it! one anot!er. It is assume t!at none of t!e organs of t!e >tate in'luing t!e  @ui'iary oul eB'ee its poers as lai on in t!e 4onstitution. It is also eBpe'te t!at in t!e overall interest of  t!e 'ountry even t!oug! t!eir @urisi'tions are separate an emar'ate all t!e institutions oul or% in !armony an in tanem to maBimise t!e publi' goo.

!ile t!ere is a broa agreement on t!e above prin'iples in pra'ti'e from time to time a ispute arises !et!er one organ of t!e >tate !as eB'eee t!e bounaries assigne to it uner t!e 4onstitution.

"!is as t!e 'ase in 1,- in

 Kesavananda 'ase !i'! I mentione earlier !en t!e poer of  t!e legislature to amen t!e 4onstitution as 'onsiere by t!e >upreme 4ourt. "!e 4ourt 'onrme t!at t!e =basi' stru'ture? of

t!e

4onstitution

as

an

unalterable

feature

of

our

4onstitution !i'! 'oul not be amene even by an $'t of  Parliament. In 1,-A !oever t!is vie as '!allenge by t!e t!en government before a spe'ial ben'! of t!e >upreme 4ourt. It as argue t!at Parliament as =supreme? an represente t!e sovereign ill of t!e people.

$s su'! if t!e people*s

representatives in Parliament e'ie to '!ange a parti'ular la

5

to 'urb iniviual freeom or limit t!e s'ope of @ui'ial s'rutiny t!e

@ui'iary

'onstitutional

!a or

no not.

rig!t

to

/uestion

Cortunately

after

!et!er

it

as

listening

to

t!e

persuasive legal argument of Mr. Pal%!ivala t!e t!en 4!ief   Justi'e of Inia e'ie to issolve t!e 3en'! an t!e =basi' stru'ture? o'trine as re7a+irme as an unalienable feature of  our 4onstitution.

"!e issue of t!e relative @urisi'tional bounaries of t!e organs of t!e >tate !as a'/uire a ne momentum in t!e re'ent perio in t!e 'onteBt of 'oalition politi's at t!e 'enter an in states.

"!us uring state ele'tions in early 200A in some

states parti'ularly J!ar%!an Doa an 3i!ar no party or a 'oalition of parties !a a 'lear ma@ority.

"!e situation as

furt!er 'ompli'ate by t!e fa't t!at neit!er t!e Dovernors of  t!ese states (!o !a t!e nal poers to appoint a government) nor t!e presiing o+i'ers of t!e legislatures (!o !a t!e poers to 'onu't t!e pro'eeings of t!e 8ouse !ere t!e ma@ority 'laime by t!e ne government as to be teste) ere 'onsiere to be impartial in t!eir e'isions. Irrespe'tive of t!e intrinsi' merits of t!e e'isions ta%en by any of t!ese 'onstitutional aut!orities an appeal to t!e 4ourts by aggrieve parties t!erefore be'ame unavoiable.

"!us in J!ar%!an after t!e ele'tions in Mar'! 200A t!e Dovernor as please to sear7in a government !eae by a member of t!e nion 4abinet !o i not seem to !ave a 'lear ma@ority. 8e as also given a number of ays to prove !is ma@ority on t!e 9oor of t!e 8ouse. "!e opposition parties !o

6

'laime to !ave a ma@ority ere eBtremely upset by t!is e'ision of t!e Dovernor an le a rit petition in t!e >upreme 4ourt '!allenging t!e e'ision of t!e Dovernor. 200A t!e 4ourt passe an orer !i'!

;n Mar'! ,

inter alia gave

ire'tions to t!e >pea%er to eBten t!e $ssembly session by a ay an 'onu't a 9oor test beteen t!e 'ontening politi'al allian'es. In t!e lig!t of 4ourt*s e'ision t!e earlier government forme by t!e nion minister e'ie to tener its resignation on t!e avi'e of t!e 'entral government.

$n alternative

government as t!en forme by a 'ombination of ot!er parties !i'! as able to prove its ma@ority on t!e 9oor of t!e 8ouse. "!e ire'tions of t!e >upreme 4ourt to t!e >pea%er of   J!ar%!an $ssembly raise a legal storm as t!ese ere interprete by several eBperts as intruing into an area !i'! as it!in t!e @urisi'tion of t!e legislature. "!is vie as also enorse by an Emergent 4onferen'e of t!e Presiing ;+i'ers of &egislative 3oies of Inia !i'! as 'onvene at s!ort noti'e on 20t!  Mar'! 200A to eliberate on t!e 4onstitutional issue arising from t!e veri't of t!e >upreme 4ourt. In no un'ertain terms t!e Presiing ;+i'ers eBpresse t!eir 'on'ern over =su'! orers passe by t!e 'ourts repeately !i'! ten to isturb t!e eli'ate balan'e of poer beteen Jui'iary an &egislature

an

appear

to

be

a

transgression

into

t!e

inepenen'e of t!e Parliamentary >ystem of our 4ountry?. ;n 2r May 200A t!e 'ontroversy relating to t!e >upreme 4ourt

ire'tions in t!e

imension.

J!ar%!an 'ase a'/uire a ne

"!is time it relate to t!e a'tion ta%en by t!e

Presient of Inia to issolve t!e 3i!ar assembly on t!e

7

re'ommenation of t!e Dovernor of t!e state an t!e avi'e of  t!e nion 4abinet. ;ver t!e previous fe mont!s t!e state as uner Presient*s rule an t!e $ssembly as in suspene animation as no party or 'ombination of parties !a emerge it! a 'lear ma@ority in t!e earlier ele'tions in Cebruary 200A. "!e legislators belonging to some minority parties !a be'ome restive an t!ere ere strong rumours t!at some of t!em ere li%ely to @oin a 'oalition of parties !i'! ere oppose to t!e previous ruling party (t!e as!triya Janata Fal) in t!e state !i'! as a member of t!e ruling 'oalition at t!e 'enter. ;n grouns of allege =!orse7traing? among legislators t!e Dovernor suenly e'ie to re'ommen issolution of t!e assembly to t!e nion 4abinet an t!roug! it to t!e Presient !o as t!en on a state visit to Mos'o. "!e re'ommenation as uly a''epte as issolve.

late at nig!t in Mos'o an t!e assembly

>ome of t!e a+e'te legislators le a 'ase

against t!e a'tion ta%en by t!e eBe'utive bran'!.

"!e 'entre*s legal position in t!is 'ase as le in an a+iavit before t!e >upreme 4ourt as t!at =t!e 4ourt is not to in/uire G it is not 'on'erne it! G !et!er any avi'e as tenere by any minister or 'oun'il of Ministers to t!e Presient an if so !at as t!at avi'e.

"!at is a matter

beteen t!e Presient an !is 'oun'il of Ministers?. In ot!er ors a''oring to t!e government*s vie t!e 4oun'il of  Ministers

'oul

avise

t!e

Presient

to

pass

any

orer

(irrespe'tive of its merits)H t!e Presient !a no option but to a''ept t!at avi'e uner t!e 4onstitutionH an t!e 4ourt !a no

8

rig!t to eBamine !et!er t!e a'tion of t!e eBe'utive as legal or not.

 $fter !earing t!e arguments in ;'tober 200A t!e >upreme 4ourt gave a summary veri't e'laring t!e a'tion of  t!e government to issolve t!e 3i!ar assembly as being =un'onstitutional? an unreasonable.

"!e 4ourt !oever i

not orer t!e revival of t!e ol assembly as fres! ele'tions !a alreay been announ'e by t!e Ele'tion 4ommission an ere s'!eule to ta%e pla'e after a fe ays. "!e 4ourt*s veri't 'ause 'onsierable publi' embarrassment to t!e government sin'e t!e e'ision to issolve t!e $ssembly as ta%en by t!e Presient at a very s!ort noti'e on t!e avi'e of t!e nion 4abinet.

Even

before

t!e

!earings

in

t!e

3i!ar

'ase

ere

'omplete in $ugust 200A anot!er 'ontroversy arose on t!e 4ourt*s @ugment regaring reservation /uotas in unaie private engineering 'olleges.

"!e 'ourt rule t!at if /uotas

ere ne'essary t!e government s!oul ma%e t!e appropriate amenment in t!e relevant $'ts.

;t!erise manatory

reservation /uotas in unaie 'olleges ere not legal.

"!is

 @ugment of t!e 4ourt raise vo'iferous ob@e'tions from all se'tions in Parliament 'utting a'ross party lines. #o party as illing to o+en t!e bene'iaries of su'! /uotas pening t!e passage of relevant legislative amenments.

I !ave brie9y mentione t!ese re'ent 'ases as I believe t!at a 'loser eBamination of t!e reasons for t!e i+eren'es of 

9

 vies on separation of poers oul !elp us in 'onsiering !ere t!e bounaries s!oul be ran on t!e @ui'iary*s poers to etermine t!e legality of a'tions ta%en by t!e &egislature anor t!e eBe'utive bran'!. &et me no eal it! some of t!e broaer issues of prin'iples involve. I ill 'ome ba'% to t!ese spe'i' 'ases a bit later in t!is tal%.

In t!eory an in prin'iple bot! sies of t!e argument on t!e o'trine of separation of poers !ave some valiity. "!us it 'an be rig!tly argue t!at Parliament is t!e supreme la7 ma%ing boy an t!e 'ourts s!oul not pass veri'ts !i'! !ave t!e e+e't of '!anging t!e legal position as approve by Parliament. It 'an also be pointe out it! some @usti'ation t!at some 'ourt rulings in t!e past ere rong in la an !a to be over7turne by subse/uent rulings by a !ig!er 'ourt or a larger ben'! of t!e >upreme 4ourt.

"!e >upreme 4ourt

t!erefore 'annot be 'onsiere to be infallible.

>imilarly it is true t!at prima fa'ie some of t!e past 4onstitutional @ugments ere inee prote'tive of private interests. Cor eBample soon after inepenen'e in 1,A1 several 'ourt rulings overturne lan reform measures as being  violative of t!e funamental rig!ts of lanoners.

"!e

government le by Jaa!ar &al #e!ru !a to amen t!e 4onstitution to implement lan reforms !i'! ere 'onsiere  vital for 'ountry*s e'onomi' an so'ial progress.

>imilarly in

1,-0 t!e >upreme 4ourt !a also rule against nationaliation of ban%s unerta%en by Mrs. Inira Dan!i*s government. >pe'ial

legislation

as

passe

10

by

Parliament

to

ma%e

nationaliation possible. $ number of ot!er instan'es 'oul be 'ite !ere t!e @ugment of t!e >upreme 4ourt or ot!er 'ourts as not in line it! popular eBpe'tations.

!ile all t!ese arguments !ave some valiity %eeping in  vie t!e re'ent politi'al evelopments at t!e 'enter an in t!e states I am rmly of t!e vie t!at on balan'e t!e long term interests of t!e publi' an t!e orinary 'itien are safer if t!e >upreme 4ourt 'ontinues to be t!e at'!og of Inia*s emo'rati' 'onventions an nal arbiter of t!e 'onstitutional  valiity of any la or a'tion approve by t!e legislature or t!e government of t!e ay.

It is no a''ient t!at t!e politi'al

pressure to limit t!e poers of t!e @ui'iary an e'lare Parliament as being =supreme? an representative of t!e ill of  t!e =People of Inia? is t!e strongest !en a 'oalition government of parties it! varying agena is in poer or !en t!e politi'al survival of t!e unispute leaer of t!e ma@ority party is t!reatene.

In t!ese 'ir'umstan'es politi'al survival

be'omes more important t!an t!e legal merits or emerits of a 'ase.

"!e above vie is not meant to etra't from t!e great merits of t!e Parliamentary system of government in unifying Inia an giving us t!e freeoms t!at e as t!e people '!eris!. "!an%s to t!e resilien'e an vibran'y of t!is system Inia is no t!e orl*s largest fun'tioning emo'ra'y it! a free press freeom of spee'! freeom to @oin or leave politi'al parties an free ele'tions in !i'! t!e largest number of voters in t!e orl 'ast t!eir votes an '!oose t!eir government.

11

it!out oubt for all of us unli%e our 'ounterparts in a large part of t!e eveloping orl t!ese freeoms 'onstitute a tremenous personal so'ial an politi'al gain of !i'! e 'an be @ustly prou.

Cor t!e reasons t!at I !ave elaborate

else!ere in my vie t!is establis!e an ell7trie out system of t!e parliamentary form of government is also t!e most viable an t!e best for Inia.

 $t t!e same time e !ave to re'ognie t!at in t!e last siBteen years

7 from 1,, to 200A G t!ere !ave been some

funamental '!anges in t!e morale ob@e'tives an t!e style of  fun'tioning of our national as ell as regional politi'al parties. "!ese '!anges are a result of !at is iely referre to an a''epte

as =t!e

'ompulsions

of 'oalition

politi's? an

relatively s!ort terms of o+i'e of governments in poer. >in'e 1,, t!e 'ountry !as unergone as many as siB general ele'tions an multiple 'oalitions of i+erent parties !ave rule t!e 'ountry.

"!ere !ave been seven governments (not 'ounting

t!e present government) several of !om !a tenures ranging from a fe mont!s to about one year. Prior to 1,, in t!e rst 1 years of inepenen'e siB Prime Ministers !a rule t!e 'ountry of !om only t!ree !a tenures of less t!an ve years.  $fter t!e most re'ent ele'tions in 200 t!e ne 'oalition t!at !as ta%en over t!e reins of government is epenent on t!e insie an outsie support of several parties of t!e rig!t an t!e left 7 from insie an outsie.

In prin'iple Parliament still 'ontinues to be supreme an t!e 'abinet is a''ountable to it.

12

In pra'ti'e !oever t!e

a''ountability of t!e eBe'utive to Parliament !as be'ome some!at perfun'tory an pro7forma as long as t!e government !as t!e ma@ority support of a party or a 'ombination of parties. "!e poer of t!e leaer of a party over its members is supreme an un/uestione an !at !appens in Parliament no G it! o''asional eB'eptions 7 is largely etermine by t!e immeiate politi'al interests of i+erent parties rat!er t!an by intrinsi' merits or emerits of a'tions ta%en by t!e eBe'utive.

"!e eBpe'tation t!at t!e tenure of a government is going to be s!ort !as !a several unintene 'onse/uen'es. Ieology an programmes !ave be'ome relatively less important an any party (of !atever type) is illing to 'ombine it! any ot!er party for possible politi'al or ele'toral gain or seats in t!e 4abinet at t!e 'enter or in states. >ome parties !ave split several times to gain temporary ele'toral avantage an some parties !ave move from one sie to anot!er in orer to @oin t!e government.

"!e number of parties eling 'aniates for

ele'tions !as multiplie an it is i+i'ult to istinguis! among t!e programmes or ieologies of most parties. $s many as AA parties 'onteste t!e 200 ele'tions it! various %ins of inter7 party allian'es.

 $n

important

'onse/uen'e

of

t!e

re'ent

politi'al

evelopments !as been t!e ominan'e of smaller parties by a fe iniviuals an absen'e of intra7party emo'ra'y in most parties. >ome parties !et!er large or small !ave only one or to leaers !o '!oose t!e party*s 'aniates for ele'tions. "!e leaers

also

e'ie

!o

ill

13

be'ome

members

of

t!e

government le by anot!er party an !o ill be sent to a@ya >ab!a t!e pper 8ouse of Parliament.

Most of t!e smaller

parties !ave a narro so'ial base but t!eir leaers en@oy 'onsierable politi'al poer in vie of t!eir ability to sing relatively small numbers of votes in favour of anot!er party parti'ularly in marginal seats.

"!e fun'tioning of Parliament an state legislatures in re'ent years !as also been eBamine in etail by t!e re'ent #ational 4ommission to revie t!e or%ing of t!e 4onstitution. "!e 4ommission*s observations are ort! noting:

=If t!ere is a sense of unease it! t!e ay t!e Parliament an t!e >tate legislatures are fun'tioning it may be ue to a e'line in re'ent years in bot! t!e /uantity an /uality of  or% one by t!em. KKK Even t!e relatively feer ays on !i'! t!e !ouses meet are often mar%e by unseemly in'ients in'luing use of for'e to intimiate opponents s!outing an s!utting out of ebate an is'ussion resulting in fre/uent a@ournments. "!ere is in'reasing 'on'ern about t!e e'line of Parliament falling stanars of ebate erosion of t!e moral aut!ority an prestige of t!e supreme tribune of t!e people ?. (p.10A) "!e report of t!e #ational 4ommission as presente to t!e t!en government in Mar'! 2002. >in'e t!en t!ere !as been furt!er rift in t!e fun'tioning of Parliament.

"!e latest

eBample of t!is p!enomenon as itnesse on 2,t!  $ugust 200A. ;n t!at ay a ay before t!e en of t!e monsoon session t!e a@ya >ab!a aopte an important omen*s su''ession bill in four minutes 9at in t!e mist of s!outing an s!utting out of  any ebate an is'ussion on t!e 3ill. Members ere not even

14

able to !ear t!e Minister rising to introu'e t!e 3ill. "!e 'lause by 'lause 'onsieration as also ta%en up it!out any member being able to spea% or 'omment in t!e mist of a isrupte an noisy !ouse. "!en t!e bill as passe by a =voi'e vote? it!out members even being aare t!at t!e 4!air !a as%e for su'! a  vote. Cortunately t!is parti'ular 3ill as 'on'erne it! proviing e/ual treatment of persons irrespe'tive of gener in respe't of in!eritan'e an it en@oye ie publi' support. 8oever !at as alarming as not t!e 'ontents of t!e 3ill but t!e ay in !i'! it as passe. 3ase on t!is pre'een'e at least in prin'iple any ot!er bill !atever its 'ontents is 'apable of being passe in t!e same ay.

"!e s!rin%ing role of Parliament in t!e fun'tioning of  Inia*s emo'ra'y as also elo/uently emonstrate a year before t!e above pro'eeings. ;n 26t! $ugust 200 'ontrary to 'onvention an ell7establis!e rules of pro'eure Parliament e'ie to suspen t!e /uestion !our an pass t!e regular buget involving an eBpeniture of more t!an s. -A000 'rore it!out any is'ussion it!in a fe minutes.

"!is as t!e

result of a ba'%room agreement beteen t!e leaers of parties in t!e government an t!e opposition folloing several ays of  isruption of parliamentary or% be'ause of a ispute on a sensitive but eBtraneous matter.

"!e sum total of t!e re'ent evelopments in Inia*s party politi's is t!at t!e Parliament no oes !at t!e !anful of  leaers ant as long as t!eir parties !ave a 'ombine ma@ority of seats in Parliament.

#ormally all members are free to as% 

15

/uestions raise issues of publi' importan'e an pass las after ue 'onsieration. "!e >taning 4ommittees of Parliament also spen 'onsierable time an e+ort to eBamine issues of publi' importan'e an submit t!eir report to t!e to 8ouses of  Parliament for 'onsieration. $ re'ent positive evelopment is t!e setting up of an Et!i's 4ommittee in a@ya >ab!a an an emerging 'onsensus in bot! 8ouses to reu'e unet!i'al 'onu't by t!eir members.

8oever a 'ru'ial point to note is t!at it!

some o''asional an el'ome eB'eptions (as in t!e re'ent 'ase of eBpulsion of some members of Parliament for a''epting 'as! for /uestions) !at t!e Parliament may be as%e to o is in t!e immeiate ele'toral interest of t!e parties in poer rat!er t!an t!e interest of t!e people as a !ole. $s ele'tions !ave be'ome fre/uent an are !el at i+erent points of time in i+erent states an t!e 'enter ele'toral 'ompulsions !ave also be'ome more pressing.

In t!is situation it oes not seem pruent or politi' for t!e orinary 'itien of Inia to 'onfer suprema'y to legislature it!out a''ountability. "!e legality of eBe'utive a'tion must 'ontinue to be sub@e't to @ui'ial s'rutiny !oever !ig! t!e level at !i'! su'! e'isions !ave been ta%en.

$s is ell

%non in re'ent years t!e ministries !ave be'ome in'reasingly sub@e't to t!e unilateral poli'y preferen'es of iniviual ministers !o !appen to be in o+i'e at a parti'ular point of  time.

"!ere is selom any ort!!ile publi' ebate or

'onstru'tive importan'e.

ialogue

on

matters

of

long

term

publi'

$ re'ent eBample of t!e eBer'ise of poer by a

minister in o+i'e !i'! oul !ave !a a long7term impa't on

16

t!e

/uality

of

management

eu'ation

as

t!e

e'ision

announ'e by !is ministry in Mar'! 200 to rasti'ally reu'e t!e nan'ial autonomy en@oye by t!e Inian Institutes of  Management

(IIMs).

"!is e'ision as mae by t!e t!en

minister it!out approval of t!e 'abinet or a ebate in Parliament. $fter t!e '!ange of government in May 200 t!e ne minister rig!tly e'ie to reverse t!e e'ision.

"!e

e'ision of t!e ne minister as iely el'ome by t!e IIMs an as in t!e 'ountry*s overall interest.

8oever t!e issue !ere is not !et!er t!e e'ision ta%en by a parti'ular minister on be!alf of !is ministry as rig!t or rong. "!e issue !ere is one of long7term publi' interest. If a minister is able to turn t!e eu'ation system of t!e 'ountry one ay

or

t!e

ot!er

it!out

ae/uate

is'ussion

an

a''ountability !at stops !im or !er from passing las or rules !i'! !ave averse long7term impa't on t!e elfare of t!e people as a !ole or se'tions of t!e people !o are not aligne to !is or !er party5

 $s mentione earlier t!e >upreme 4ourt an ot!er 4ourts are not infallible an !ave also given @ugments !i'! !a to be reverse in subse/uent !earings. 4ourts are by no means full of noble sages but t!ey o provie an aitional re'ourse to restrain eB'esses by t!e eBe'utive. Crom t!e point of vie of an average 'itien t!e great avantage of t!e @ui'ial revie of  e'isions ta%en by t!e eBe'utive an t!e legislature is also t!at everyone irrespe'tive of !is or !er beliefs or politi'al a+iliation !as a''ess to 'ourts.

"!is is not t!e 'ase in respe't of t!e

17

eBe'utive or t!e Parliament. "!e free meia oes play a 'onstru'tive role in enfor'ing a egree of a''ountability on government but t!at by itself is not enoug!.

"!e ot!er avantage of @ui'iary being t!e arbiter of  legality or ot!erise of an eBe'utive or legislative e'ision is t!at

even

if

a

parti'ular

veri't

is

rong

or

una''eptable it is sub@e't to revie an reversal.

so'ially "!is not

usually t!e 'ase it! legislative or eBe'utive e'isions unless t!e government of t!e ay so e'ies. $ 'itien !as no legal rig!t to as% for a revie of e'isions ta%en by t!e legislature or t!e eBe'utive even if t!ey are not in t!e publi' interest. "!e re'ent ig!t to Information $'t is an important step forar in ma%ing t!e eBe'utive a''ountable to t!e people ire'tly. 8oever in 'ase of any un@ust or partisan e'isions ta%en by t!e government t!e remey oul still lie it! t!e Jui'iary.

$gainst t!e above ba'%groun let us brie9y 'onsier t!e merits of t!ree re'ent 'ases !i'! I mentione earlier regaring t!e allege in'ursion of t!e @ui'iary in areas belonging to t!e legislature or t!e eBe'utive.

"!us in respe't of t!e ire'tions

given by t!e >upreme 4ourt to t!e >pea%er of t!e J!ar%!an assembly in Mar'! 200A it is 'ertainly possible to ta%e t!e vie t!at t!e 'ourt ent a bit too far in telling t!e >pea%er eBa'tly !at to o (in'luing for eBample as%ing for a vieo re'oring of t!e pro'eeings).

8oever t!ere is very little oubt t!at t!e

partisan a'tion to sear in a government !i'! i not !ave a ma@ority

folloe

by

e+orts

to

prevent

an

alternative

government from being forme by anot!er 'ombination of 

18

parties as against all 'anons of fair play an long7staning legislative 'onventions.

&et us suppose for t!e sa%e of 

argument t!at t!e >upreme 4ourt !a ismisse t!e 'ase on t!e groun t!at it 'oul not intervene in a 'ase involving t!e >pea%er*s a'tion in t!e &egislature.

oul t!e refusal of t!e

'ourt to !ear t!e 'ase !elpe t!e 'ountry or t!e average 'itien in up!oling t!eir funamental emo'rati' rig!ts5

In t!is 'onne'tion I s!oul mention t!at t!e 8on*ble >pea%er of t!e &o% >ab!a in !is #ani Pal%!ivala Memorial &e'ture on 12t!  May 200A before t!e 3ar $sso'iation of Inia !as raise an important an legitimate issue.

8e !as rig!tly

as%e t!e /uestion: !at oul !ave !appene if t!e >upreme 4ourt orer 'oul not be implemente by t!e >pea%er be'ause of t!e isturban'es an isruption by t!e members of t!e &egislature in t!e 8ouse5 oul t!e @ui'iary !ave been able to eal it! t!e situation or le a 'ase of 'ontempt against t!e >pea%er an members of t!e 8ouse5

In 'ase t!e 4ourt*s

ire'tions 'oul not be implemente an t!e 4ourt as unable to se'ure t!e enfor'ement of its orer t!e 'ountry oul !ave been fa'e it! a most i+i'ult situation an a 4onstitutional ealo'%.

"!e point is ell ta%en. 8oever it oes not resolve t!e basi' issue of instituting a me'!anism for prote'ting t!e emo'rati' rig!ts of 'itiens (an for t!at matter of a large boy of ele'te members of a legislature) in t!e event of an unarrante eBer'ise of is'retionary poers by t!e Dovernor or t!e government or t!e >pea%er G or a 'ombination of t!em.

19

"!e enfor'ement of 4ourt*s orers in all emo'ra'ies are ultimately t!e responsibility of t!e eBe'utive in poer !i'! eBer'ises aut!ority over all enfor'ement agen'ies of t!e >tate. ltimately 4ourts t!emselves !ave no ire't means of enfor'ing t!eir orers G !et!er t!ese orers relate to iniviuals organiations government or any ot!er entity. If t!e eBe'utive it! or it!out approval of t!e legislature e'ies to eB'ee its 'onstitutional aut!ority an ignore >upreme 4ourt*s orers t!ere is not!ing t!at t!e 4ourt itself 'an o eB'ept re7iterate or revise its orers.

If be'ause of t!e ina'tion of t!e eBe'utive

t!ere is a 'onstitutional brea%on t!e ultimate remey lies only it! t!e people.

In t!e 'ase of 3i!ar in vie of fra'ture ele'toral veri't in Cebruary 200A t!e Dovernor as please to re'ommen t!e imposition of Presient*s rule it!out issolving t!e assembly. 8oever after patiently aiting for t!ree mont!s all of a suen an it!out any noti'e or is'ussion it! i+erent politi'al parties in May 200A !e felt 'ompelle to re'ommen t!at t!e assembly s!oul be issolve immeiately. "!e nion 4abinet 'onsiere it appropriate to meet late at nig!t an avise t!e Presient !o as on a state visit to Mos'o to approve t!e Dovernor*s re'ommenation uring t!e 'ourse of  t!e nig!t itself. "!e reason for t!is great urgen'y t!ree mont!s after t!e ele'tion is not at all 'lear. $gain let us suppose for t!e sa%e of argument t!at =!orse7traing? among legislators as a'tually ta%ing pla'e. !at as t!e 'ompelling reason for 8is EB'ellen'y t!e Dovernor not to !ave t!e matter investigate by state aut!orities5

If t!e Dovernor of a >tate is in'line to

20

ta%e a politi'ally partisan a'tion !at is t!e remey available to t!e orinary 'itien or a+e'te legislators eB'ept to appeal to t!e @ui'iary5.

In t!e 3i!ar 'ase one relate issue !i'! !as 'ause some legal 'ontroversy is t!e timing of t!e initial summary veri't of  t!e >upreme 4ourt in ;'tober 200A it!out eBplaining t!e full rationale.

It !as been argue t!at even it!out t!e 4ourt*s

summary @ugment state ele'tions oul !ave gone a!ea anyay.

"!e 4ourt*s in'omplete summary veri't i not

'!ange t!e 'ourse of events an gave rise to an avoiable 'ontroversy about t!e e'ision ta%en by t!e 8ea of >tate on re'ommenations of t!e nion 4abinet.

"!is is a reasonable

observation an it oul !ave 'ertainly been better if t!e 4ourt !a given its e'ision in full.

8oever it oes not e9e't from

t!e main point t!at an important e'ision ta%en by t!e nion 4abinet in a !urry on t!e Dovernor*s re'ommenation as not ae/uately supporte by available fa'ts on t!e groun.

Cinally in t!e 'ase involving /uotas in unaie engineering 'olleges it is legitimate to ta%e t!e vie t!at sub@e't to 'ertain 'onitions su'! /uotas are so'ially esirable an @ustie. 8oever t!e /uestion t!at eserves an anser is: !at is t!e !arm one to so'iety if t!e 'ourts rule t!at imposition of /uotas is not permissible uner prevailing las5

In t!at 'ase t!e

legislature is free to pass t!e ne'essary la. "!is is pre'isely !at as one in t!e last session of t!e Parliament. In 'ase t!e earlier vie as t!at t!ose !o !a alreay been amitte uner /uotas 'oul be aversely a+e'te t!e 4ourts 'oul !ave

21

been re/ueste to allo for time for t!e ne'essary legislation to be ena'te it!out a+e'ting t!e present bene'iaries.

"!e position in t!e nite >tates in respe't of separation of poers ens!rine in its 4onstitution for ell over to 'enturies is also of some relevan'e to us. In t!e nite >tates t!e !ea of t!e eBe'utive bran'! t!e Presient an !is 4abinet are not members of t!e 4ongress. "!e @usti'es of t!e >upreme 4ourt are appointe for life after being nominate by t!e Presient an approve by t!e 4ongress.

8oever on'e

appointe t!ey are a''ountable to no ot!er bran'! of t!e >tate. "!eir @ob is to up!ol t!e 4onstitution !i'! empoers t!em to overrule

ot!er bran'!es of t!e government.

"!e >upreme

4ourt is t!e nal arbiter of t!e 4onstitutional limits of t!e poers of t!e legislature an t!e Presient.

 $s is t!e 'ase in Inia all t!e @uges of t!e >upreme 4ourt are entitle to ta%e t!eir on separate vies on t!e intent of t!e 4onstitution an vote a''oringly.

8oever in t!e .>. ea'!

 @uge is appointe for life an t!e Presient an t!e 4ongress !ave

only

limite

9eBibility

in

in9uen'ing

t!e

4ourt*s

'omposition uring t!eir tenures. !enever a va'an'y o''urs t!ere is t!erefore 'onsierable publi' eB'itement an s'rutiny of t!e ieology an legal 'reentials of t!e Presiential nominees.

>ome of t!e famous e'isions of t!e 4ourt for

eBample in t!e  Roe vs. Wade  veri't in 1,- !i'! legalie abortions uner 'ertain 'ir'umstan'es or t!e re'ent 200A Kelo vs. New London e'ision !i'! eBpane t!e government*s poer of

=eminent omain? (by a narro A7 ma@ority) an

22

alloe state governments to erae private aterfront !ouses !ave arouse 'onsierable publi' 'ontroversy among i+erent ieologi'al groups. "!e  Roe e'ision eBpane private rig!ts an t!e  Kelo e'ision severely restri'te it uner 'ertain 'ir'umstan'es. 8oever !ile t!e arguments about t!e merits of t!ese an ot!er e'isions !ave been intense an revie petitions !ave also been le no one !as /uestione t!e unfettere rig!t of 'ourts to revie !et!er e'isions ta%en by 4ongress an >tate &egislatures are in 'onformity it! t!e 4onstitutional provisions.

Leeping in vie our on eBperien'e as ell as t!e eBperien'e of ot!er emo'ra'ies it is 'lear t!at a rigi emar'ation

of

legal

poers

among

i+erent

bran'!es

irrespe'tive of t!e spe'i' 'ir'umstan'es is neit!er feasible nor esirable. 3y an large uner normal 'ir'umstan'es t!ere is no oubt t!at it is appropriate for i+erent bran'!es of t!e >tate to or% in !armony an 'onne t!emselves to t!eir primary tas%s as ens!rine in t!e 4onstitution. Parliament as t!e !ig!est representative

boy

s!oul

also

!ave

t!e

un/uestione

aut!ority to pass las !i'! it 'onsiers appropriate. "!e eBe'utive bran'! s!oul be a''ountable to Parliament an s!oul !ave full aministrative poers to implement las an programmes as approve by Parliament. $n t!e @ui'iary s!oul give veri'ts an settle legal isputes as per t!e las of  t!e lan. Most of t!e time in all mature emo'ra'ies t!ere s!oul also be no 'ause for @urisi'tional 'on9i't among i+erent organs of t!e >tate.

23

8oever t!ere are times !en se'tional interests an ='ompulsions of 'oalition politi's? 'an be'ome t!e primary rivers of t!e las passe by Parliament anor aministrative a'tions ta%en by t!e eBe'utive. >ome of t!ese las an eBe'utive e'isions may run 'ounter to t!e intent of t!e 4onstitution an aversely a+e't t!e funamental rig!ts of t!e publi'. If t!e politi'al ma@ority in Parliament is fragmente an t!ere is a serious 'on9i't ieologi'al or ot!erise among 'oalition partners some Parliamentary e'isions may re9e't se'tional ele'toral interests rat!er t!an t!e long7term interests of t!e people as a !ole. "!ere may also be times !en t!e politi'al or private interests of a supreme leaer or a group of  leaers may be uner publi' s'rutiny be'ause of 'ertain eBogenous or enogenous evelopments.

In su'! eB'eptional

an !opefully infre/uent 'ir'umstan'es it is ne'essary to !ave a 'ourt of last resort to e'ie on t!e 'onstitutional valiity of  spe'i' las or a'tions initiate by t!e legislature or t!e eBe'utive. "!e nal legal arbiter in su'! 'ases 'an only be t!e  @ui'iary !i'! is ire'tly a''essible to t!e publi' an !ose  veri'ts are in any 'ase sub@e't to revie an appeal.

 $ll Inians are @ustiably prou of t!eir Parliamentary emo'ra'y an t!eir multiple freeoms. "!e preservation of  t!ese freeoms is also a primary goal of t!e Inian 4onstitution. "!ere 'an be no 'ompromise on t!is s'ore !atever be t!e s!ort7term interests of politi'al parties an governments !i'! are temporarily in poer as agents of t!e >tate. It is t!e responsibility of t!e @ui'ial system as a separate agent of t!e

24

>tate to provie a measure of prote'tion to t!e people against eB'esses 'ommitte by ot!er publi' institutions.

It is of 'ourse true t!at t!e @ui'iary 'an also ma%e mista%es. !ig!est

"!us t!irty years ago at t!e time of Emergen'y t!e

4ourt

in

t!e

lan

!a

enorse

several

eBtra7

'onstitutional $'ts passe by t!e legislature at t!e instan'e of  t!e eBe'utive.

In vie of t!e enormous elays an multiple

levels of appeals it 'an also be argue t!at @ui'ial system itself  is in urgent nee of reforms in orer to provie speey @usti'e. 8oever even after ta%ing all t!ese imperfe'tions into a''ount I !ave no oubt t!at on balan'e t!e 'ountry is better o+ it!  @ui'iary as an aitional '!e'%7point on legality of a'tion ta%en (or for t!e matter not ta%en) by t!e legislature an t!e eBe'utive. It s!oul be free to issue appropriate ire'tions to any agen'y of t!e >tate if its a'tions are 'onsiere arbitrary partisan an violative of t!e intent of t!e 4onstitution to give Inia a government of t!e people by t!e people an for t!e people.

&et me en it! to /uotations from #ani Pal%!ivala from !is boo% “We, the People” publis!e in 1,. 4ommenting on t!e solemn e'larations mae by parliamentarians from time to time as being supreme representatives of t!e ill of t!e people !e !a t!is to say :

=The myth that Parliament’s will is the people’s will was exploded at the election held in arch !"##. $id the Parliament which %had earlier& passed the 'orty()econd *mendment and which also approved o+ the proclamation o+ the emerency,

25

represent the will o+ the people-  /t is inconceiva0le that a+ter havin provided the most complete and comprehensive 1arantees o+ the 0asic h1man +reedoms 2nown to any  constit1tion o+ the world, the 3onstit1tion(ma2ers still intended that any Parliament co1ld ta2e away those +1ndamental rihts” 4p. 56" 7 p.5!89.  $n nally on t!e san'tity of t!e 4onstitution !e remine us an t!e generations yet to 'ome:

=The 3onstit1tion is not a str1ct1re o+ +ossils li2e a coral ree+ and is not intended merely to ena0le politicians to play  their 1nendin ame o+ power. /t is meant to hold the co1ntry  toether when the ra1co1s and +ractio1s voices o+ today are lost in the silence o+ the cent1ries” 4p.xv9. Mr. Pal%!ivala*s vision of a fast groing free an empoere Inia is no 'loser to reality t!an ever before.

I

!ope t!at all our people an all our institutions publi' an private ill 'ontinue to or% toget!er in !armony to fully realie our national goals.

"!an% you.

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