RELATIONSHIP BETWEEN FUNDAMENTAL RIGHTS AND DIRECTIVE PRINCIPLES OF STATE POLICY: A CRITICAL ANALYSIS (Project Report)
Submitted To: Ms. Madhurima De Sarkar (Faculty Member, Constitutional Governance-I) Submitted By: Prashant Choudhary Roll No: 110, Section C, Semester III B.A. L.L.B. (HONS.)
Date of Submission: 18.10.2016
Hidayatullah National Law University Uparwara Post, Abhanpur, New Raipur – 492002 (C.G.)
DECLARATION I hereby declare that the project work entitled “Relationship Between Fundamental Rights and Directive Principles of State Policy: A Critical Analysis” submitted to Hidayatullah National Law University, Raipur, is a record of an original work done by me under the able guidance of Ms. Madhurima De Sarkar, Faculty-in-charge, Constitutional Governance-I, Hidayatullah National Law University, Raipur.
Prashant Choudhary Semester III Roll No. 110 Section C
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ACKNOWLEDGEMENTS I feel highly elated to work on the topic “Relationship Between Fundamental Rights and Directive Principles of State Policy: A Critical Analysis”. This research venture has been made possible due to the generous co-operation of various persons. To list them all is not practicable, even to repay them in words is beyond the domain of my lexicon. May I observe the protocol to show my deep gratitude to the venerated Faculty Member, Ms. Madhurima De Sarkar, for her kind gesture in allotting me such a wonderful and elucidating research topic. Her consistent supervision, constant inspiration and invaluable guidance have been of immense help in understanding and carrying out the nuances of the project report.
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CONTENTS
Declaration.................................................................................................................... 1 Acknowledgements ........................................................................................................ 2 Introduction .................................................................................................................. 4 Objective Of The Study................................................................................................. 5 Scope Of The Study ...................................................................................................... 5 Research Methodology ................................................................................................. 5 Fundamental Rights And Directive Principles Of State Policy: About ................. 6 Fundamental Rights And Dpsp: The Relationship .................................................. 7 Purpose Of Insertion Of Part Iii And Part Iv .......................................................... 7 Tussle Between The Legislature And Judiciary ....................................................... 8 Fundamental Rights And Directive Principles Of State Policy: Conflicting Or Complimentary .......................................................................................................... 11 Conclusions ................................................................................................................ 13 References .................................................................................................................. 14
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INTRODUCTION The justiciability of Fundamental Rights and non-justiciability of Directive Principles on the one hand and the moral obligation of State to implement Directive Principles (Article 37) on the other hand have led to a conflict between the two since the commencement of the Constitution. In the Champakam Dorairajan case (1951), the Supreme Court ruled that in case of any conflict between the Fundamental Rights and the Directive Principles, the former would prevail. It declared that the Directive Principles have to conform to and run as subsidiary to the Fundamental Rights. But, it also held that the Fundamental Rights could be amended by the Parliament by enacting constitutional amendments acts. As a result, the Parliament made the First Amendment Act (1951), the Fourth Amendment Act and the Seventeenth Amendment Act
to implement some of the
Directives. The above situation underwent a major change in 1967 following the Supreme Court's judgement in the Golaknath case (1967). Whenever conflicts arise between fundamental rights and directive principles, fundamental rights prevail over the directive principles because, in terms of Arts. 32 and 226, fundamental rights are enforceable by the courts. If a law is in conflict with a fundamental right, it is declared void by the Supreme Court. But no law can be declared void on the ground that it is violative of a directive principle. In 1951, in Champakam Dorairajan vs. the state of Madras, the Supreme Court held “The chapter on Fundamental Rights is sacrosanct and not liable to be abridged by any legislative or executive act. The Directive Principles of State Policy have to conform and are subsidiary to the chapter on Fundamental Rights.”
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OBJECTIVE OF THE STUDY
To analyze and understand the concepts of Fundamental rights and DPSPs individually.
To find out the relationship between the two concepts of Fundamental Rights and Directive Principles of State Policy.
To study the tussle of the legislature and Judiciary regarding both the concepts
To study in brief some important court judgments which lead to the current situation of the Fundamental Rights and DPSPs
To critically evaluate if Fundamental Rights and DPSPs are conflicting or complementary.
SCOPE OF THE STUDY This project covers Fundamental Rights and Directive Principles of State Policy as two individual concepts. The project later sees the merging of both these concepts and the conditions that prevailed in India when the tussles over Fundamental Rights and Directive Principles of State policy took place. This project, though in brief also discusses some famous cases which were of utmost importance in the formation of current laws and scenarios.
RESEARCH METHODOLOGY The research methodology adopted is descriptive analytical. Through my project I aim to describe and analyze the relationship that exists between Fundamental Rights and DPSPs and also discuss the whole development procedure which was followed to reach to the proper conclusion over Fundamental rights and DPSPs' applicability and ambit. The sources of data in the project include - books, websites, discussions on the topic with the subject teacher, seniors and friends.
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FUNDAMENTAL RIGHTS AND DIRECTIVE PRINCIPLES OF STATE POLICY: ABOUT The Fundamental Rights in Indian constitution acts as a guarantee that all Indian citizens can and will live their lives in peace as long as they live in Indian democracy. They include individual rights common to most liberal democracies, such as equality before the law, freedom of speech and expression, freedom of association and peaceful assembly, freedom of religion, and the right to constitutional remedies for the protection of civil right. An important feature of the constitution is the Directive Principles of State Policy. Although the Directive Principles are asserted to be "fundamental in the governance of the country," they are not legally enforceable. Instead, they are guidelines for creating a social order characterized by social, economic, and political justice, liberty, equality, and fraternity as enunciated in the constitution's preamble. The Forty-second Amendment, which came into force in January 1977, attempted to raise the status of the Directive Principles by stating that no law implementing any of the Directive Principles could be declared unconstitutional on the grounds that it violated any of the Fundamental Rights.
The
amendment simultaneously stated that laws prohibiting "antinational activities” or the formation of “antinational associations” could not be invalidated because they infringed on any of the Fundamental Rights. It added a new section to the constitution on "Fundamental Duties" that enjoined citizens "to promote harmony and the spirit of common brotherhood among all the people of India, transcending religious, linguistic and regional or sectional diversities." However, the amendment reflected a new emphasis in governing circles on order and discipline to counteract what some leaders had come to perceive as the excessively freewheeling style of Indian democracy. After the March 1977 general election ended the control of the Congress (Congress (R) from 1969) over the executive and legislature for the first time since independence in 1947, the new Janata - dominated Parliament passed the Fortythird Amendment (1977) and Forty-fourth Amendment (1978). These amendments revoked the Fortysecond Amendment's provision that Directive Principles take precedence over Fundamental Rights and also curbed Parliament's power to legislate against "antinational activities."
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FUNDAMENTAL RIGHTS AND DPSP: THE RELATIONSHIP The important question is where there is a conflict between the fundamental rights and directive principles, which should prevail? The Fundamental Rights are the rights of the individual citizens guaranteed by the Constitution. The directive principles lay down various tenets of a welfare state. The conflict arises when the State needs to implement a directive principle and it infringes/ abridges the fundamental rights of the citizens. The chapters on the fundamental rights & DPSP were added in order of part III and part IV of the constitution. The Fundamental rights are justifiable and guaranteed by the constitution. The Directive principles were directives to the state and government machinery. But they are not enforceable, by the law.
PURPOSE OF INSERTION OF PART III AND PART IV The framers of the Indian constitution were aware that there were other constitutions which had given expression to certain ideals as the goal towards which the country should strive and which had defined the principles considered fundamental to the governance of the country. They were aware of the event that had culminated in the charter of United Nations. Universal declaration of Human rights had been adopted by the General Assembly of the United Nations, for India was a signatory to it. It contained a basic and fundamental rights appertaining to all men. These rights were born of the philosophical speculation of the Greek and Roman stoics and nurture by the jurists of ancient Rome. These rights had found expression in a limited form in the accords of 1188 entered into between King Alfonso IX and the Cortes of Leon, the Magna Carta of 1215 and the guarantees which King Andrew II of Hungary was forced to give by his Golden bull of 1822. The French National Assembly also included the “Declaration of the Rights of Man and of the Citizen”. The first ten amendments to the constitution of the United States of America contained certain rights akin to Human rights. Constitution of Eire, Japan also contained similar rights and Directive principles. Section 8 of the article 1 of the U.S constitution contained a Welfare clause empowering the federal Government to enact laws for the overall general welfare of the people. U.S.A, the U.K and Germany had passed social welfare legislation. The framers of the Indian constitution, therefore, headed the constitution of India with a preamble which declared India’s goal and inserted parts III and IV in the constitution.
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TUSSLE BETWEEN THE LEGISLATURE AND JUDICIARY The question of relationship between the Directive Principles and the Fundamental rights has caused some difficulty, and the judicial attitude has undergone transformation on this question over time. Initially, the courts adopted a strict and literal legal position in this respect. The Supreme Court adopting the literal interpretative approach to Art. 37 ruled that a Directive Principle could not override a Fundamental right, and that in case of conflict between the two, the Fundamental right would prevail over the Directive Principle.
Champakam Dorairajan case, 1951 The Supreme Court in State of Madras v. Champakam Dorairajan, stated—1. The Directive Principles should conform, and run as subsidiary, to the Fundamental rights. 2. “The Directive Principles of the state policy, which by Art. 37 are expressly made unenforceable by a court cannot override the provisions found in part III which, notwithstanding other provisions, are expressly made enforceable by appropriate writs, orders or directions under article 32. 3. The chapter on fundamental rights is sacrosanct and not liable to be abridged by any legislative or executive act or order, except to the extent provided in the appropriate article in part III. 4. The Directive Principles of state policy have to conform to and run as subsidiary to the chapter on Fundamental rights.”
DOCTRINE OF HARMONIOUS CONSTRUCTION The Supreme Court started giving a good deal of value to the Directive principles from a legal point of view and started arguing for harmonizing the two the Fundamental rights and Directive Principles.
“Where two judicial choices are available, the construction in conformity with the social philosophy” of the Directive Principles has preference. The courts therefore could interpret a statute so as to implement Directive Principles instead of reducing them to mere theoretical ideas. This is on the assumptions that the law makers are not completely unmindful or obvious of the Directive Principles.
Further the courts also adopted the view that in determining the scope and ambit of Fundamental rights, the Directive Principles should not be completely ignored and that the courts should adopt the principles of harmonious construction and attempt to give effect to both as far as possible.
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Kerela Education Bill, 1958 In re Kerala Education Bill, SC observed 1. while affirming the primacy of fundamental rights over the directive principles, qualified the same by pleading for a harmonious interpretation of the two. 2. that “nevertheless, in determining the scope and ambit of the Fundamental rights relied upon by or on behalf of any person or body, the court may not entirely ignore these Directive Principles of state policy laid down in part IV of the constitution but should adopt the principle of harmonious construction and should attempt to give effect to both as much as possible.” Without, therefore, making the directive principles justifiable as such, the courts began to implement the values underlying these principles to the extent possible. The Supreme Court began to assert that there is “no conflict on the whole” between the fundamental rights and the directive principles. ‘They are complementary and supplementary to each other.”
Golak Nath v. State of Punjab, 1967 The Supreme Court there emphasized that the fundamental rights and directive principles formed an “integrated scheme” which was elastic enough to respond to the changing needs of the society.
Kesavanand Bharti v State of Ke rala, 1973 SC observed: 1. “the fundamental rights and directive principles constitute the “conscience of the constitution” there is no antithesis between the fundamental rights and directive principles and one supplements the other.” 2. “both parts III (fundamental rights) and IV (directive principle) have to be balanced and a harmonized.
State of Kerala v. N.M Thomas, 1976 The Supreme Court said that the Directive Principles and Fundamental rights should be construed in harmony with each other and every attempt should be made by the court to resolve any apparent in consistency between them.
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Pathumma v. State of Kerala, 1978 The Supreme Court has emphasized that the purpose of the directive principles is to fix certain socioeconomic goals for immediate attainment by bringing about a non-violent social revolution. The constitution aims at bringing about synthesis between Fundamental rights and the Directive principles.
Minerva Mills v UOI, 1980 SC observed1. that the fundamental rights “are not an end in themselves but are the means to an end.” The end is specified in the directive principles. 2. Fundamental rights and directive principles together “constitute the core of commitment to social revolution and they, together, are the conscience of the constitution.” The Indian constitution is founded on the bedrock of “balance” between the two. 3. “To give absolute primacy to one over the other is to disturb the harmony of the constitution. This harmony and balance between fundamental rights and directive principles is an essential feature of the basic structure of the constitution.” 4. the goals set out in directive principles are to be achieved without abrogating the fundamental rights. 5. “It is in this sense” that fundamental rights and directive principles “together constitute the core of our constitution and combine to form its conscience. Anything that destroys the balance between the two parts will ipso facto destroy an essential element of the basic structure of our constitution.” Olga Tellis v. Bombay Municipal Corp., 1985 The Supreme Court has argued in Olga Tellis that since the directive principles are fundamental in the governance of the country they must, therefore, be regarded as equally fundamental to the understanding and interpretation of the meaning and content of fundamental rights.
Unnikrishna v. State of Andhra Pradesh, 1993 SC said: 1. that the fundamental rights and directive principles are supplementary and complimentary to each other, and not exclusionary of each other, and 2. that the fundamental rights are but a means to achieve the goal indicate in the directive principles, that “fundamental rights must be construed in the light of the directive principles.”
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Ashoka Kumar Thakur v Union of India, 2008 Recently, in Ashoka Kumar Thakur v Union of India SC observed that no distinction can be made between the two sets of rights. The Fundamental right represents the civil and political rights and the directive principles embody social and economic rights. Merely because the directive principles are non-justiciable by the judicial process does not mean that they are of subordinate importance.
FUNDAMENTAL RIGHTS AND DIRECTIVE PRINCIPLES OF STATE POLICY: CONFLICTING OR COMPLIMENTARY Without, therefore, making the directive principles justifiable as such, the courts began to implement the values underlying these principles to the extent possible. The Supreme Court began to assert that there is “no conflict on the whole” between the fundamental rights and the directive principles. ‘They are complementary and supplementary to each other.”1 Since then, the judicial attitude has become more positive and affirmative towards directive principles, and both fundamental rights and directive principles have come to be regarded as co-equal. There is in effect a judicial tendency to interpret Fundamental rights in the light of, and so as to promote, the values underlying Directive Principles. This aspect of the directive principles was stressed upon by the Supreme Court in Golak Nath.2 The Supreme Court there emphasized that the fundamental rights and directive principles formed an “integrated scheme” which was elastic enough to respond to the changing needs of the society. In Kesavanand Bharti v. State of Kerala, HEGDE and MUKHERJI, JJ3., observed: “the fundamental rights and directive principles constitute the “conscience of the constitution” there is no antithesis between the fundamental rights and directive principles and one supplements the other.” SHELAT and GROVER, JJ., observed in their judgment: “both parts III (fundamental rights) and IV (directive principle) have to be balanced and a harmonized then alone the dignity of the individual can be achieved they were meant to supplement each other.”
1
In re Kerala Education Bill, AIR 1958 SC 956: 1959 SCR 995 Golak Nath v. State of Punjab, AIR 1967 SC 1643 3 AIR 1973 SC 1461 at 1641: (1973) 4 SCC 225 2
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The Supreme Court said in State of Kerala v. N.M Thomas4, that the Directive Principles and Fundamental rights should be construed in harmony with each other and every attempt should be made by the court to resolve any apparent in consistency between them.
4
AIR 1976 SC 490: (1976) 2 SCC 310
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CONCLUSIONS The Directive principles and Fundamental rights are not now regarded as exclusionary of each other. They are regarded as supplementary and complementary to each other. The directive principles which have been declared to be “fundamental” in the governance of the country cannot be isolated from fundamental rights. The directive principles have got to be read into the fundamental rights. An example of such relationship is furnished by the “right to education”. By and large this assimilative strategy has resulted in broadening, and giving greater depth and dimension to, and even creating more rights for the people over and above the expressly stated, fundamental rights. That biggest beneficiary of this approach has been Art 21. At the same time, the values underlying the directive principles have also become enforceable by riding on the back of the fundamental rights. Courts have used directive principles not to restrict, but rather to expand, the ambit of the fundamental rights. The theme that “fundamental rights are but a means to achieve the goal indicated in the directive principles” and the fundamental rights must be construed in the light of the directive principles” has been advocated by the Supreme Court time and again. Accordingly, the directive principles are regarded as a dependable index of “public purpose”. If a law is enacted to implement the socio-economic policy envisaged in the directive principles, then it must be regarded as one for public purpose. Thus, in State of Bihar v. kameshwar, the supreme court relied on Art. 39 to decide that the law to abolish zamindari had been enacted for a “public” purpose within the meaning of Art. 31. It may be concluded by saying that, one should try to establish harmony between fundamental rights and Directive Principles, since maintenance of harmony between them is a basic feature to the constitution
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REFERENCES 1. http://www.facts-about- india.com/fundamental-rights- in-India.php 2. http://www.importantindia.com/2041/fundamental-rights-and-directive-principles-of-statepolicy/ 3. http://www.vajiramandravi.in/conflict-between-fundamental-rights-and-directiveprinciples.html 4. http://papers.ssrn.com/sol3/papers.cfm?abstract_id=2478587 5. http://www.gktoday.in/conflict-between-fundamental-rights-and-directive-principles-of-statepolicy/ 6. https://abhijeetgautam.wordpress.com/2015/05/18/inter-relationship-between- fundamentalrights-and-directive-principles/ 7. http://www.iupindia.in/1401/Law%20Review/Evolution_of_the_Relationship.html 8. http://www.grkarelawlibrary.yolasite.com/resources/LLM-Const-1-Queency.pdf
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