Professional Documents
Culture Documents
Page: 127
fulfils these three requirements. Later, it discusses the theoretical and practical
application of this rule of law in India.
I. INTRODUCTION
The concept of Rule of Law is that the State is governed, not by the ruler or the
nominated representatives of the people but by the Law. A County that enshrines the
rule of law would be one where in the Grundnorm of the Country, or the basic and core
Law from which all other Law derives its authority is the Supreme authority of the
State. The monarch or the representatives of the republic are governed by the Laws
derived out of the Grundnorm and their powers are limited by the Law. The King is not
the Law but the Law is King.
The origins of the Rule of Law theory can be traced back to the Ancient Romans
during the formation of the first republic; it has since been championed by several
medieval thinkers in Europe such as Hobbs, Locke and Rousseau through the Social
Contract Theory. Indian philosophers such as Chanakya have also espoused the rule of
law theory in their own way; by maintain that the King should be governed by the
word of law. The formal origin of the word is attributed to Sir. Edward Coke, and is
derived from French phase ‘la principle de legalite’ which means the principle of
legality. The firm basis for the Rule of Law theory was expounded by A.V. Dicey and
SCC Online Web Edition, © 2021 EBC Publishing Pvt. Ltd.
Page 2 Saturday, November 27, 2021
Printed For: ASHOK JOHNSON RODRIGUES, School of Law Christ University
SCC Online Web Edition: http://www.scconline.com
© 2021 EBC Publishing Pvt.Ltd., Lucknow.
-----------------------------------------------------------------------------------------------------------------------------------------------------------
his theory on the rule of law remains the most popular. Dicey's theory has three pillars
based on the concept that “a Government should be based on principles of Law and
not of men”, these are:
A. Supremacy of Law
This has always been the basic understanding of rule of law that propounds that the
Law rules over all people including the persons administering the Law. The Law makers
need to give reasons that can be justified under the law while exercising their powers
to make and administer Law.
B. Equality before the Law
While the principle of Supremacy of Law sets in place checks and balances over the
Government on making and administering Law, the principle of equality before the law
seeks to ensure that the Law is administered and enforced in a just manner. It is not
enough to have a fair Law but the Law must be applied in a just manner as well. The
Law cannot discriminate between people in matters of sex, religion, race etc. This
concept of the rule
Page: 128
of law has been codified in the Indian Constitution under Article 14 and the Universal
Declaration of Human Rights under the preamble and Article 7.
Page: 129
Judiciary. By these methods, the Constitution fulfils all the requirements of Dicey's
theory to be recognized as a Country following the Rule of Law.
The Supreme Court of Indian has further strengthened this mechanism through its
various Judgments, the foremost of them being, ADM, Jabalpur v. Shivakant Shukla1 .
In this case the question of Law before the Court was, ‘Whether there was any rule of
law in India apart from Article 21’. This was in context of suspension of enforcement of
Articles 14, 21 and 22 during the proclamation of an emergency. The answer of the
majority of the bench was in negative for the question of law. However Justice H.R.
Khanna dissented from the majority opinion and observed that:“Even in absence of
Article 21 in the Constitution, the State has got no power to deprive a person of his life
and liberty without the authority of Law. Without such sanctity of life and liberty, the
distinction between a lawless society and one governed by Laws would cease to have
any meaning…Rule of Law is now the accepted norm of all Civilized Societies”.
In Chief Settlement Commr. v. Om Parkash2 , it was observed by the Supreme Court
that, “In our Constitutional system, the Central and most characteristic feature is the
concept of rule of law which means, in the present context, the authority of Law Courts
to test all administrative action by the standard of legality. The Administrative or
Executive action that does not meet the standard will be set aside if the aggrieved
person brings the matter into notice.”
In Satwant Singh Sawhney v. D. Ramarathnam3 the Supreme Court has held that
every executive action if it operates to the prejudice of any person must be supported
by some legislative authority.
In State of Karnataka v. Umadevi (3)4 a Constitution Bench of this Court has laid
down the law in the following terms:“Thus, it is clear that adherence to the rule of
equality in public employment is a basic feature of our Constitution and since the rule
of law is the core of our Constitution, a court would certainly be disabled from passing
an order upholding a violation of Article 14 or in ordering the overlooking of the need
to comply with the requirements of Article 14 read with Article 16 of the Constitution.”
Most famously in Kesavananda Bharati Sripadagalvaru v. State of Kerala5 the Supreme
Court held that the Rule of Law is an essential part of the basic structure of the
constitution and as such cannot be amended by
Page: 130
any Act of Parliament, thereby showing how the law is superior to all other authority of
men.
exists on paper does not always exist in practice. When it comes to procedural
effectiveness, India fares poorly. In the categories of absence of corruption and order
and security, India ranks 83rd and 96th globally.
In addition to the problem faced in India due to corruption in the law making and
justice delivery systems, there also exists the problem of old laws still being in place.
India does not adopt a ‘sunset’ clause in its laws and post independence the Indian
Independence Act provided that all laws existing under the colonial rulers would
continue to exist under the new system unless explicitly revoked by the parliament.
While this did provide the nation with a firm basic system of laws, thereby preventing
a situation of anarchy in the immediate aftermath of independence, some of these
laws were drafted to suit the environment of those time and they become hard to
interpret in the current environment. This leads to ambiguity and endless litigation in
an attempt to interpret the provisions.
While these problems persist it is important to note that the constitutional
mechanism has provided enough safe guards to endure that the Rule of Law in some
form will always persist. One of the most important factors contributing to the
maintenance of the Rule of Law is the activity of the courts in the interpretation of the
Law. It is rightly reiterated by the Supreme Court in Union of India v. Raghubir Singh6
that it is not a matter of doubt that a considerable degree that governs the lives of the
people and regulates the State functions flows from the decision of the superior courts.
Most famously in Maneka Gandhi v. Union of India7 the court ensured that exercise of
power in an arbitrary manner by the government would not infringe the rights of the
people and in Kesavananda Bharati the Court ensured that Laws could not be made
that essentially go against the Rule
Page: 131
of Law by saying that the basic structure could not be breached, altered or modified.
Apart from judicial decision the constitutional mechanism in itself provides for the
protection of the rule of law through the creation of monitoring agencies. While there
have been numerous scams that have come to light in the last few years, the fact that
must also be noted is that these scams have come to light and the justice delivery
mechanism has been set in motion against the perpetrators. The role of the Central
Vigilance Commission and the Comptroller and Auditor General in the exposure of
these discrepancies is commendable and this shows how the law has provided for its
own protection by putting in place multiple levels of safe guards which ensure that it
will be effective at some level. The Election Commission of India, a Constitutional body
has also been undertaking the task of ensuring free and fair elections with some
degree of efficiency.
A. Rule of Law Part of the Basic Structure
The Constitution (First Amendment) Act, 1951, shocked the status of Rule of law in
India. The question which came up for consideration in Sankari Prasad Singh Deo v.
Union of India8 was whether the fundamental rights can be amended under Article
368. The Supreme Court held that Parliament has the power to amend Part III of the
Constitution under Article 368 as under Article 13 ‘Law’ means any Legislative action
and not a Constitutional amendment. Therefore, a Constitutional amendment would be
valid if abridges any of the Fundamental Rights.
The question again came up for consideration in Sajjan Singh v. State of Rajasthan9
in which the Supreme Court approved the majority judgment in Sankari Prasad case
and held that amendment of the Constitution means amendment of all provisions of
SCC Online Web Edition, © 2021 EBC Publishing Pvt. Ltd.
Page 5 Saturday, November 27, 2021
Printed For: ASHOK JOHNSON RODRIGUES, School of Law Christ University
SCC Online Web Edition: http://www.scconline.com
© 2021 EBC Publishing Pvt.Ltd., Lucknow.
-----------------------------------------------------------------------------------------------------------------------------------------------------------
the Constitution. Hon'ble Chief Justice Gajendragadkar held that if the framers of the
constitution intended to exclude fundamental rights from the scope of the amending
power they would have made a clear provision in that behalf.
However, both these cases were overruled by the Supreme Court in C. Golak Nath
v. State of Punjab10 and it held that Parliament has no power to amend the Part III of
the Constitution so as to take away or abridges the Fundamental rights and thus, at
the end the Rule of Law was sub-served by the Judiciary from abridging away.
However, the Rule of Law was crumpled down with the Constitution (Twenty-Fourth
Amendment) Act, 1971.
Page: 132
Parliament by the way of this Amendment inserted a new clause (4) in Article 13
which provided that ‘nothing in this Article shall apply to any amendment of this
constitution made under Art 368’. It substituted the heading of Article 368 from
‘Procedure for amendment of Constitution’ to ‘Power of Parliament to amend
Constitution and Procedure thereof’. The Amendment not only restored the amending
power of the Parliament but also extended its scope by adding the words “to amend by
way of the addition or variation or repeal any provision of this constitution in
accordance with the procedure laid down in the Article”.
This was challenged in Kesavananda Bharti v. State of Kerala11 . The Supreme Court
by majority overruled the decision given in Golaknath case and held that Parliament
has wide powers of amending the Constitution and it extends to all the Articles, but
the amending power is not unlimited and does not include the power to destroy or
abrogate the basic feature or framework of the Constitution. There are implied
limitations on the power of amendment under Article 368. Within these limits
Parliament can amend every Article of the Constitution. Thus, Rule of Law prevailed.
In Kesavananda Bharati Sripadagalvaru v. State of Kerala the Supreme Court states
that “Our Constitution postulates Rule of Law in the sense of supremacy of the
Constitution and the laws as opposed to arbitrariness.” The 13 judge Bench also laid
down that the Rule of law is an “aspect of the basic structure of the Constitution,
which even the plenary power of Parliament cannot reach to amend.” Since
Kesavananda case, Rule of law has been much expanded and applied differently in
different cases.
In Indira Nehru Gandhi v. Raj Narain12 the Supreme Court invalidated Clause (4) of
Article 329-A inserted by the Constitution (Thirty-ninth Amendment) Act, 1975 to
immunise the election dispute to the office of the Prime Minister from any kind of
judicial review. The Court said that this violated the concept of Rule of law which
cannot be abrogated or destroyed even by the Parliament.
The Habeas Corpus case according to many scholars is a black mark on the rule of
law. The case entails Dicey's third principle of rule of law. The legal question in this
case was whether there is any rule of law over and above the Constitutional rule of law
and whether there was any rule of law in India apart from Article 21 of the
Constitution regarding right to life and personal liberty. A five judge Bench with a
majority of 4 : 1 (going by strict interpretation) held in the negative. The majority
judges held that the Constitution is the mandate and the rule of law. They held that
there cannot
Page: 133
SCC Online Web Edition, © 2021 EBC Publishing Pvt. Ltd.
Page 6 Saturday, November 27, 2021
Printed For: ASHOK JOHNSON RODRIGUES, School of Law Christ University
SCC Online Web Edition: http://www.scconline.com
© 2021 EBC Publishing Pvt.Ltd., Lucknow.
-----------------------------------------------------------------------------------------------------------------------------------------------------------
be any rule of law other than the constitutional rule of law. Excluding moral
conscience, they held that there cannot be any pre-Constitution or post-Constitution
rule of law which can run counter to the rule of law embodied in the Constitution, nor
there any rule of law to nullify the constitutional provisions during the time of
Emergency.
The majority judges held that “Article 21 is our rule of law regarding life and liberty.
No other rule of law can have separate existence as a distinct right. The rule of law is
not merely a catchword or incantation. It is not a law of nature consistent and
invariable at all times and in all circumstances. There cannot be a brooding and
omnipotent rule of law drowning in its effervescence the emergency provisions of the
Constitution.” Thus they held that Article 21 is the sole repository of right to life and
liberty and during an emergency, the emergency provisions themself constitute the
rule of law.
In a powerful dissent, Justice H.R. Khanna observed that “Rule of law is the
antithesis of arbitrariness…Rule of law is now the accepted form of all civilized
societies…Everywhere it is identified with the liberty of the individual. It seeks to
maintain a balance between the opposing notions of individual liberty and public
order. In every State the problem arises of reconciling human rights with the
requirements of public interest. Such harmonizing can only be attained by the
existence of independent courts which can hold the balance between citizen and the
state and compel governments to conform to the law.”
With the Constitution (Forty-Fourth Amendment) Act, 1978 it has been laid down
that even during emergency, Articles 20 and 21 will not be suspended. According to
me, Justice Khanna (with due respect to his high moral conscience) has not given a
judgment in consonance with the rule of law. His Lordship has on the other hand tried
to place the judiciary over and above the rule of law. During emergency, that was the
rule of law that Article 21 is suspended. Creating rule of law above the Constitution
will create huge implications. Whatever be the case, the Austinian sense of
jurisprudence does apply in the present case and the majority judges have not
decided wrongly. Though now it remains only an academic question but if a law does
not seem to be morally rich then it is the job of the Legislature to amend it and not
the Judiciary to come up with its own new law which is non-existent and against the
existing law. In Ramana Dayaram Shetty v. International Airport Authority of India,13
the Supreme Court held that the great purpose of rule of law is the protection of
individual against arbitrary exercise of power, wherever it is found. In re : Arundhati
Roy, Justice Sethi observed that for achieving the establishment of the rule of law, the
Constitution has assigned the special task to the judiciary.
Page: 134
When Article 371-D (5) (Proviso) authorized the A.P. Government to nullify any
decision of the Administrative Services Tribunal, it was held violative of the rule of law.
Holding the provision unconstitutional, the Supreme Court said that it is a basic
principle of the rule of law that the exercise of power by the Executive must not only
be governed by the Constitution but also be in accordance with law. The Court also
held that the power of judicial review should be used to ensure that rule of law is
maintained. Over the years, the Courts have used judicial activism to expand the
concept of rule of law. For example, in Courts are trying to establish a rule of law
SCC Online Web Edition, © 2021 EBC Publishing Pvt. Ltd.
Page 7 Saturday, November 27, 2021
Printed For: ASHOK JOHNSON RODRIGUES, School of Law Christ University
SCC Online Web Edition: http://www.scconline.com
© 2021 EBC Publishing Pvt.Ltd., Lucknow.
-----------------------------------------------------------------------------------------------------------------------------------------------------------
Page: 135
All people are presumed to be innocent until proven otherwise and are entitled to
remain silent and are not required to incriminate themselves.
No one can be prosecuted, civilly or criminally, for any offence not known to the law
when committed.
No one is subject adversely to a retrospective change of the law.
C. Important Components of Rule of Law Reforms
i. Court Reforms
The efficiency of the courts is an important component in rule of law reforms as the
existence of a judiciary is a fundamental aspect of the rule of law.
To increase accountability and transparency, information technology systems may
be installed to provide greater public access. To increase independence of the courts,
the government can provide them with funding that will allow them to make their own
financial and administrative decisions.
Recent aggressive judicial activism can also be seen as a part of the efforts of the
Constitutional Courts in India to establish rule of law society, which implies that no
matter how high a person, may be the law is always above him. Court is also trying to
identify the concept of rule of law with human rights of the people. The Court is
developing techniques by which it can force the Government not only to submit to the
law but also to create conditions where people can develop capacities to exercise their
rights properly and meaningfully. However, Separation of Powers should be
maintained.
ii. Legal Rules
Another important rule of law reform goal is to build the legal rules. As Fuller
stated, “Laws must Exist.”
SCC Online Web Edition, © 2021 EBC Publishing Pvt. Ltd.
Page 8 Saturday, November 27, 2021
Printed For: ASHOK JOHNSON RODRIGUES, School of Law Christ University
SCC Online Web Edition: http://www.scconline.com
© 2021 EBC Publishing Pvt.Ltd., Lucknow.
-----------------------------------------------------------------------------------------------------------------------------------------------------------
Page: 136
Page: 137
which is a Union Territory and not a full State. As a result, the Delhi Government does
not have control over land, appointment of senior officers and the police force. These
three are controlled by the L-G, “A big victory for the people of Delhi...a big victory for
democracy,” said Kejriwal on Twitter minutes after the Supreme Court verdict.
SCC Online Web Edition, © 2021 EBC Publishing Pvt. Ltd.
Page 9 Saturday, November 27, 2021
Printed For: ASHOK JOHNSON RODRIGUES, School of Law Christ University
SCC Online Web Edition: http://www.scconline.com
© 2021 EBC Publishing Pvt.Ltd., Lucknow.
-----------------------------------------------------------------------------------------------------------------------------------------------------------
Page: 138
Rule of Law is a basic concept which originated from the Common Law in England,
and since has become an overarching concept which defines the Law in Common Law
Countries. The essence of the concept is simple. “Be you ever so high, Law is above
you”, essentially the Law makes no distinction between persons, all are equal before
the law and everyone is entitled to the protection of Law. This basic concept has
evolved to create the concept of rights which cannot be taken away by any
Government or King. The foremost right is that no one shall be treated differently by
the Law or in the eye of Law or the Courts because of who he is or where he comes
from.
In Indian Law, this has been encapsulated in what is called the Golden Triangle of
the Constitution Articles 14, 19 and 21. Article 14 deals with the right to equality, and
says that no one shall be deprived of the right to equality and the equal protection of
laws. Article 19 enumerates basic freedoms afforded to every citizen such as freedom
of speech, freedom of movement, freedom to carry out trade or profession etc. Article
21 says that no one shall be deprived of life or personal liberty except in accordance
with procedure established by law.
Rule of Law protects people against powerful persons who may wish to tyrannize
SCC Online Web Edition, © 2021 EBC Publishing Pvt. Ltd.
Page 10 Saturday, November 27, 2021
Printed For: ASHOK JOHNSON RODRIGUES, School of Law Christ University
SCC Online Web Edition: http://www.scconline.com
© 2021 EBC Publishing Pvt.Ltd., Lucknow.
-----------------------------------------------------------------------------------------------------------------------------------------------------------
and subjugate others by holding that all are equal before the law, and that everyone is
entitled to equal protection of laws. If any person or group ever tries to subjugate
others, the Courts will hold them accountable for their actions, and will seek to protect
the Common man, because our nation is governed by Rule of Law, not according to
whims and fancies of a particular person or group of people.
———
* Dr. K. Sangeetha, Assistant Professor, School of Excellence in Law, Department of Environmental Law, The
Tamil Nadu Dr. Ambedkar Law University, Chennai — 600 028. This Article is submitted to Chanakya National Law
University, Patna, established as a multidisciplinary journal, vol. VIII.
1 (1976) 2 SCC 521 : AIR 1976 SC 1207, para 154.