Holding

The Court held that repromulgation of ordinances without legislative approval is a colourable exercise of power and unconstitutional, and therefore the Bihar Intermediate Education Council Ordinance, 1983 is void.

Summary

The State of Bihar repeatedly repromulgated ordinances after each legislative session was prorogued, keeping the same provisions in force for years without converting them into statutes. Four petitioners, including a professor and affected individuals, challenged the constitutional validity of three specific ordinances and the broader practice under Article 213 of the Constitution. The State argued lack of locus standi, that the issue was academic, and that the Court could not examine the Governor's satisfaction. The Supreme Court held that repromulgation of ordinances without legislative enactment is a colourable and unconstitutional exercise of power, striking down the Bihar Intermediate Education Council Ordinance, 1983. It affirmed that the Governor's ordinance power is an emergency power limited to six weeks after the legislature reconvenes and cannot be used to usurp legislative functions. Consequently, the writ petitions were allowed and the practice was declared invalid.

Issues considered

Whether the Governor of a State can repromulgate the same ordinance repeatedly without legislative enactment under Article 213 of the Constitution.
Whether the petitioners have locus standi to challenge the practice of repromulgation of ordinances.
Whether the question of the Governor's satisfaction in issuing an ordinance is justiciable.

Legislation cited

Constitution of Indias. Article 213(1), s. Article 213(2)(a), s. Article 213(2)(b)

Subjects

OrdinanceGovernorArticle 213repromulgationconstitutional lawseparation of powerspublic interest litigationlocus standicolourable exercise of poweremergency powers

Judgment

A DR. D.C. WADHWA & ORS.
I'.
STATE OF BIHAR & ORS.

DECEMBER :w, 1986
B
[P.N. BHAGWATI CJ, RANGANATH MISRA, G.L. OZA,
M.M. DUTT AND K.N. SINGH, JJ.]

Constitution of India, 1950, Article 213-Scope of-Power of the
Governor to repromulgate Ordinances from time to time without getting
them replaced by Acts of Legislature-Scope of-Whether a colourable
C exercise of power, repugnant to the constitutional scheme.

The State of Bihar adopted a practice of repromulgating the ordi·
nances on a massive scale from time to time without their provisions
i
-
r_
being enacted into acts of the legislature. The practice was that, after
D the session of the State Legislature was prorogued, the same ordinances
which had ceased to operate were repromulgated containing substan-
tially the same provisions almost in a routine manner. The petitioners
challenged the validity of this practice and in particular they challenged
the constitutional validity of three different ordinances issued by the
Governor of Bihar, namely, (I) Bihar Forest Produce (Regulation of
E Trade) Third Ordinance 1983; (ii) The Bibar Intermediate Education
Council Third Ordinance 1983; and (iii) The Bihar Bricks Supply
(Control) Third Ordinance 1983, since these Ordinances also suffered
the same process of repromulgation from time to time.

Petitioner No. 1, a Professor of Economics in Gokhale Institute of
Politics and Economics, Pone carried out thorough and detailed re-
F search in the matter of repromulgation of Ordinances by the Governor
of Bihar from time to time and filed the present writ P"tition as he was 'l--·
I
interested in the preservation and promotion of constitutional function-
ing of the administration in the country. Petitioner Nos. 2, 3 and 4 were \:
affected by the provisions of the aforesaid Ordinances mentioned at
serial no. (i) (ii) and (iii) respectively. The provisions of two ou¢ of the
G aforesaid three Ordinances were enacted into acts of the legislature
during the pendency of the writ petitions and the third Ordinance,
namely, the Bihar Intermediate Education Council Third Ordinance,
1983 is still in operation though a bill incorporating the provision of this
Ordinance is pending consideration before the State Legislature and it
H bas been referred to the Sel«t Committee.

798
\
\
DR. D.C. WADHWA v. STATE OF BIHAR 799

Counsel for the Respondent-State opposed the writ petitions con- A
tending: (i) that the petitioners have no locus standi to maintain the writ
petitions, since out of the three Ordinances, two of them had already
lapsed and their provisions were enacted into Acts of the Legislature
and so far as the third Ordinance, namely, the Bihar Intermediate
Education Council Third Ordinance 1983 is concerned, a legislative
proposal has already been introduced for enacting its provisions into an B
Act; (ii) that the petitioners are not entitled to challenge the practice of
repromulgating ordinances from time to time since they are mainly
outsiders who have no legal interest to challenge the validity of this
practice; (iii) that the question raised before the Court is academic in
nature and should not be adjudicated upon by it; and (iv) that the Court
is not entitled to examine whether the conditions precedent for the .C
exercise of power of the Governor under Art. 213 existed or not for the
purpose of determining the validity of an Ordinance.

Allowing the writ petitions,

HELD: (!) The Bihar intermediate Education Council Ordi- D
nance 1983 which is still in operation is struck down as unconstitutional
and void. The Governor cannot assume legislative function in excess of
the strictly defined limits set out in the Constitution because otherwise
·~ .. he would be usurping a functioo which does not belong to him. [818F·GI

ln the instant case, the executive in Bihar has almost taken over E
the role of the Legislature in making laws not for a limited period but

- for years together in disregard of the constitutional limitations. This is
clearly contrary to the constautional scheme and it must be held to be
improper and invalid. It is hoped and trusted that such practice shall
·t not be continued in the future and that whenever an Ordinance is made

-I and the Government wishes to continue the provisions of the Ordinance
in force after the assembling of the Legislature, a Bill will be brought
F

before the Legislature for enacting those provisions into an Act. There
must not be Ordinance-Raj la the country. (8180-F]

2( !) The rule of law constitutes the core of the Constitution of
India and it is the essence of the rule of law that the exercise of the G
power by the State whether it be the Legislature or the Executive or any
other authority should be within the constitutional limitations ar.d if
any practice is adopted by tile Executive which is in flagrant and
systematic violation of its constitutional limltatioris, Jl!!titioner No. 1 as
a member of the public would have sufficient interest to challenge such
practice hy filing a writ petition and it would he the cogstitutional duty H
800 SUPREME COURT REPORTS (1987] 1 S.C.R.

A of the Supreme Court to entertain the writ petition and adjudicate upon
the validity ofsuch practice. [805C-E]

2(2) The Bihar Intermediate Education Council Third Ordinance
1983 is still in force and it cannot therefore be said to be academic to
examine the challenge to its constitutional validity. Moreover, the ques-
B tion raised in these writ petitions is of highest constitutional importance
as it does affect the power of the Governor to re-promulgate Ordinances
and it is in public interest that the Executive should know what are the
limitations on the power of the Governor in the matter of re-promul-
gation of ordinances. If this question is not decided on merits, the
correct position in regard to the constitutional limitations on the power
C of the Governor to re-promulgate ordinances will remain undeter-
mined. [805F-H] 1
S. P. Gupta & Ors. v. Union of India & Ors .. [ 198?] 2 SCR 365,
referred to.

D 3( I) The power conferred on the Governor to issue Ordinances is
in the nature of an emergency power which is vested in the Governor for
taking immediate action where such action may become necessary at a
time when the Legislature is not in session. [8!5C-D]

3(2) The primary law making authority under the Constitution is
E the Legislature and not the Executive but it is possible that when the
Legislature is not in session, circumstances may arise which render it
necessary to take immediate action and in such a case in order that
public interest may not suffer by reason of the inability of the Legisla·
lure to make law to deal with the emergent situation, the Governor is <
vested with the power to promulgate ordinances. But every ordinance
F promulgated by the Governor must he placed before the Legislature \
and it would cease to operate at the expiration of six weeks from the
reassembly of the Legislature or if before the expiration of that period a
resolution disapproving it is passed by the Legislative Assembly and
agreed to by the legislative Council, if any. The object of this provision
is that since the power conferred on the Governor to issue Ordinances is
G an emergent power exercisable when the Legislature is not in session,
an Ordinance promulgated hy the Governor to deal with situation
which requires immediate action and which cannot wait until the legis-
lature reassembles, most necesarily have a limited life. [815D-G]

3(3) The power to promulpte an Ordinance is essentially a
H power to be used to meet an extraordinary situation and it cannot be
\
•
DR. D.C. WADHWA v. STATE OF BIHAR 801

allowed to be "perverted to serve political ends". It is contrary to all
A
democratic norms that the Executive should have the power to make a
law, but in order to meet an emergent situation, this power is conferred
on the Governor and an Ordinance issued by the Governor in exercise of
this power must, therefore, of necessity be limited in point of time. That
is why it is provided that the Ordinance shall cease to operate on the
expiration of six weeks from the date of assembling of the Legislature. 13
The Constitution makers expected that if the provisions of the Ordi-
nance are to be continued in force, six weeks time should be sufficient
for the Legislature to pass the necessary Act. But if within this time the
Legislature does not pass such an Act, the Ordinance must come to an
end. [816A-C]

3(4) The Executive cannot by taking resort to an emergency
c
power exercisable by it only when the Legislature is not in session, take
over the law-making function of the Legislature. That would be clearly
subverting the democratic process which lies at the core of our constitu-
tional scheme, for then the people would be governed not by the laws
made by the legislature as provided in the Constitntion but by laws D
made by the Executive. The Government cannot by-pass the Legislatnre
and without enacting the provisions of the Ordinance in an Act of the
Legislatnre, repromulgate the ordinance as soon as the Legislature is
prorogued. [816E-F]

3(5) A constitutional authority cannot do indirectly what it is not E
permitted to do directly. If there is a constitntional provision inhibiting
• the constitutional authority from doing an act, such provision cannot be
allowed to be defeated by adoption of any subterfuge. That would be
clearly a fraud on the constitutional provision. [816H; 817A-B]

4. When the constitutional provision stipulates that an Ordinance F
promulgated by the Governor to meet an emergent situation shall cease
to be in operation at the expiration of six weeks from the reassembly of
the Legislature and the Government if it wishes the provisions of the
Ordinance to be continued in force beyond the period of six weeks has to
go before the Legislature which is the constitutional authority entrusted
with the law making function, it would most certainly be a colourable G
exercise of power for the Government to ignore the Legislature and to
repromulgate the Ordinance and thus to continue to regulate the life
and liberty of the citizens through Ordinance made by the Executive.
Such a strategem would be repugnant to the constitutional scheme, as it
would enable the Executive to transgress its constitntional limitation in
the matter of law making in an emagent sitnatioo and to covertly and indi- H
802 SUPREME COURT REPORTS [1987) 1 S.C.R.

A redly arrogiite to itself the law making functioo o(tbe I g' ' h11~. [8171).G)

5. The court cannot examine th• question of satisfaction of the
Governor in issuing an Ordinance, but the question in the present case
does not raise any controversy in regard to the satisfaction of the Gover-
nor. The only question is whether the Governor has power to repro-
B mulgate the same Ordinance successively without bringing it before the
Legislature. That clearly the Governor cannot do. [8188-C]

Bharat Singh v. Empire, AIR 1931 PC 111; Rajaram Bahadur
Kamlesh Narain Singh v. Commissioner of Income Tax, AIR 1943 PC
153; Laxmidhar Misra v. Rangalal & Ors., AIR 1950 PC 59 and R.C.
Cooper v. Union of India, (1970] 3 SCR 530, inapplicable.
c
ORIGINAL JURISDICTION: Writ Petition Nos. 412-15 of
1984

(Under Article 32 of the Constitution of India.)
D
Soli J. Sorabji, J.B. Dadachanji, Ravinder Narain, T.N. Ansari,
Joel Pares, S. Sukumaran and Dr. Chandrachud for the Petitioners.

L.N. Sinha, Jai Narain, P.P. Singh, D. Goburdhan and Ms. S. .......
Relan for the Respondents.
E
The Judgment of the Court was delivered by

BHAGWATI, CJ. These petitions under Article 32 of the
Constitution raise a short question of great constitutional importance
relating to the power of the Governor under Article 213 of the
F Constit11tion to re-promulgate ordinances from time to time without
getting them replaced by Acts of the Legislature. The question is, can
the Governor go on re-promulgating ordinances for an indefinite
period of time and thus take over to himself the power of the Legisla-
ture to legislate though that power is conferred on him under Article
2 13 only for the purpose of enabling him to take immediate action at a
G time when the legislative assembly of the State is not in session or
when in a case where there is a legislative council in the State, both
Houses of Legislature are not in session. The facts giving rise to these }-
writ petitions are disturbing and we may briefly state them as follows:

These writ petitions have been filed by four petitioners challeng-
H ing the validity of the practice of the Staie of Bihar in promulgating
\
DR. D.C. WADHWA v. STAIB OF BIHAR (BHAGWATI, CJ.] 803

and re-promulgating ordinances on a massive scale and in particular
they have challenged the constitutional validity of three different ordi- A
nances issued by the Governor of Bihar, namely, (i) Bihar Forest
Produce (Regulations of Trade) Third Ordinance, 1983; (ii) The Bihar
Intermediate Education Council Third Ordinance, 1983; and (iii) The
Bihar Bricks Supply (Control) Third Ordinance, 1983. Petitioner No. I
is a professor of economics is the Gokhale Institute of Politics and B
Eeonomics, Pune and he has spent a number of years in studying the
constitutional functioning of Indian politics. He is deeply interested in
the preservation and promotion of constitutional functioning of the
administration in the country. He has made a deep and profound study
of the practice which is being followed in the State of Bihar of promul-
gating and re-promulgating ordinances from time to time without
enacting them into Acts of the Legislature. Petitioner No. 2 is an c
occupancy Raiyat of village Anigara, Kunti Police Station in the dis-
trict of Ranchi. He grows forest produce in his Raiyat land. Clause (5)
of the Bihar Forest Produce (Regulation of Trade) Third Ordinance,
1983 imposes restriction on the sale of specified forest produce and it
further created State monopoly for sale and purchase of such forest D
produce. Clause (7) of this ordinance conferred power on the State
Government to fix the price at which the specified forest produce may
be purchased by it or by any authorised forest officer or agent from the
~·· growers of such forest produce. The effect of these provisions in the
Bihar Forest Produce (Regulations of Trade) Third Ordinance was
that petitioner No. 2 wa" prevented from selling his forest produce E
to any purchaser other than those mentioned in the ordinance and his
right to dispose of the forest produce was adversely affected by these
provisions and he was therefore interested in challenging the constitu-
tional validity of this ordinance. Petitioner No. 3 is a student studying
in Intermediate (Science) Class in A.N. College, Patna. He was
affected by the Bihar Intermediate Education Council Third F
Ordinance. It is not necessary to refer to the provisions of this ordi-
nance since it could not be seriously disputed on behalf of the respon-
dents that the provisions of this ordinance affected, curtailed and/or
regulated the rights of petitioner No. 3 or at least had the potential of
doing so and petitioner No. 3 therefore challenged the constitutional
validity of this ordinance. Similarly petitioner No. 4 was aggrieved by G
the Bihar Brick Supply (Control) Third Ordinance because he is the
proprietor of South Bihar Agency, Patna, a brick manufacturing con-
cern operating under a licence issued by the Mining and the Industry
Department of the Government of Bihar and the provisions of this
ordinance empowering the State Government to control and regulate
the manufacture, distribution, transport, disposal and consumption of H
804 SUPREME COURT REPORTS [1987] 1 S.C.R.

A
bricks, as also the price at which the bricks may be bought or sold
affected petitioner No. 4 and he accordingly joined the writ petition
and challenged the constitutional validity of this ordinance.

It was contended on behalf of the respondents that the peti-
tioners had no locus standi to maintain this writ petition since out of
B the three ordinances challenged on behalf of the petitioners, two of
them, namely, Bihar Forest Produce (Regulations of Trade) Third
Ordinance, 1983 and the Bihar Bricks Supply (Control) Third Ordi-
nance, 1983 had already lapsed and their provisions were enacted in
Acts of the Legislature and so far as the third ordinance, namely, The
Bihar Intermediate Education Council Third Ordinance was con-
cerned, a legislative proposal was already introduced for enacting its
c provisions into an Act. The respondents also contended that the
petitioners are not entitled to challenge the practice prevalent in the
State of Bihar of repromulgating ordinances from time to time since
they were merely outsiders who had no legal interest to challenge the
validity of this practice. We do not think this preliminary objection
D raised on behalf of the respondents is well-founded. It is undoubtedly
true that the provisions of two out of the three ordinances challenged
in these writ petitions were enacted into Acts of the Legislature but
that happened only during the pendency of these writ petitions and at
the date when these writ petitions were filed, these two ordinances
were very much in operation and affected the interest of petitioners
E Nos. 2 and 4 respectively. Moreover, the third ordinance, namely, The
Bihar Intermediate Education Council Third Ordinance is still in
operation though a bill incorporating the provisions of this ordinance
is pending consideration before the State Legislature and it has been
referred to a Select Committee and the right of petitioner No. 3 to
pursue a particular course of study is vitally affected by the provisions
F contained in that ordinance. Besides petitioner No. I is a Professor of
Political Science and is deeply interested in ensuring proper implemen-
tation of the constitutional provisions. He has sufficient interest to
maintam a petiiiou unct~r Article 32 even as a member of the public
because it is a right of every citizen to insist that he should be governed
by laws made in accordance with the Constitution and not laws made
G by the executive In violation of the constitutional provisions. Of
course, if any particular ordinance was being challenged by petitioner
No. l he may not have the locus standi to challenge it simply as a
member of the public unless some legal right or interest of his is via·
lated or threatened by such ordinance, but here what petitioner No. 1
has a member of the public is complaining of is a practice which is
H being followed by the State of Bihar of re-promulgating the ordinances
DR. D.C. WADHWA v. STATE OF BIHAR [BHAGWATI, CJ.I 805

from time to time without their provisions being enacted into Acts of
A
the Legislature. It is clearly for vindication of public interest that
petitioner No. l has filed these writ petitions and he must therefore be
held to be entitled to maintain his writ petitions. In S. P. Gupta & Ors.
v. Union of India & Ors., [ 1982] 2 SCR 365 one of us (Bhagwati, J. as
he then was) observed:-
B
"Any member of the public having sufficient interest can

-- maintain an action for judicial redress for public injury
arising from breach of public duty or from violation of
some provision of the Constitution or the law and seek
enforcement of such public duty and observance of such
constitutional or legal provision."
c
The rule of law constnutes the core of our Constitution and it is the
essence of the rule of law that the exercise of the power by the State
whether it be the Legislature or the Executive or any other authority
should be within the constitutional limitations and if any practice is
adopted by the Executive which is inflagrant and systematic violation D
of its constitutional limitations, petitioner No. l as a memtler of the
public would have sufficient interest to challenge such practice by
filing a writ petition and it would be the constitutional duty of this
Court to entertain the writ petition and adjudicate upon the validity of
such practice. We must therefore reject the preliminary contention
raised on behalf of the respondents challenging the locus of the E

-
'
petitioners to maintain these writ petitions.

The respondents then contended that in any event the question
-r raised before the Court in these writ petitions was academic in nature
and should not be adjudicated upon by the Court. But this contention
-) urged on behalf of the respondents is also without force since the Bihar
Intermediate Education Council Third Ordinance is still in force and it
F

cannot therefore be said to be academic to examine the challenge to its
constitutional validity. Moreover the question raised in these writ peti-
tions is of highest constitutional importance as it does the power of the
Governor to re-promulgate ordinances and it is in public interest that
the Executive should know what are the limitations on the power of G
the Governor in the matter of re-promulgation of ordinances. If this
question is not decided on merits, the correct position in regard to the
constitutional limitations on the power of the Governor to re-promul-
gate ordinances will remain undetermined. We are of the view that this
question has great public importance and it must be decided by us on
merits in order to afford guidance to the Governor in the exercise of H
806 SUPREME COURT REPORTS (1987] 1 S.C.R.

A his power to repromulgate ordinances from time to time.

We shall now proceed to state how the Governor in the State of
Bihar has been indulging in the practice of repromulgating the ordi-
nances from time to time so as to keep them alive for an indefinite
period of time. Petitioner No. 1 carried out thorough and detailed
ll research in the matter of repromulgation of ordinances by the Gover-
nor of Bihar from time to time and the result of this research was
compiled by him and published in a book entitled "Repromulgation of
Ordinances: Fraud on the Constitution of India". Some of the relevant
extracts from this book have been annexed to the writ petition indi-
cating the number of ordinances repromulgated repeatedly by the
of Bihar. It is clear on a perusal of these extracts that the
c Governor
Governor of Bihar promulgated 256 ordinances between 1967 and
1981 and all these ordinances were kept alive for periods ranging bet-
ween one to 14 years by repromulgation from time to time. Out of
these 256 ordinances 69 were repromulgated several times and kept
alive with the prior permission of the President of India. The following
D table would indicate the categorisation of these 256 ordinances by
reference to their life groups:-

Life-Groups Number of
(Years) Ordinances
Upto 1 59
1-2 51
2-3 -15
3--l 1l
-l-5 21
5-6 21
6--7 11
F
7-8 8 \'
8-9 -l
9-10 -l
10-11 6
11-12 -l
12-U
(j
13-1-l
Total 256

The enormity of the situation would appear to be startling if we have a
1-f look at some of the ordinances which were allowed to continue in force
DR. D.C. WADHWA v. STATE OF BDIAR (BHAGWATI, CJ.I 807
~,i..
.'
by the methodology of repromulgation. The following table indicates
in the case of each ordinance, the title of the ordinance, the date of A
first promulgation and the total period for which the ordinance was
continued in force by adopting the stratagem of repromulgation:
s. Name of the Ordinance Dote on which life of the
~ No. First Ordinance
B
Promulgated

2 3 4
) Year Months Days
i. The Bihar Sugarcane 13.11.1968 13 11 19
~ (Regulation of Supply c
and Purchase) Ordinance
1968 (Ordinance No. 3 of
1968)

ii. The Bihar Panchayati 14.8.1970 II 4 18
Raj (Amending and
Validating) Ordinance D
1970 (Ordinance No. 3
. of 1970)

-~- iii. The Bihar Hindu Religious 5.9. 1970 11 3 26
Trusts (Amendment)
Ordinance, 1970 (Ordi•
nance No. 5 of 1970) E

iv. The State Aid to 10.9.1970 II 3 21
Industries (Amendment)
Ordinance, 1970 (Ordi-
oance No. 8of 1970)

'
v. The Bibar Kbadi and 17.9.1970 11 3 14 F
Village Industries
(Amendment) Ordinance,
1970 (Ordinance No. 9
of 1970)

vi. The Bihar Soil and Water 10.2.1971 IO 10 19
Conservation and Land G
Development Ordinance,
-4 1971 (Ordinance No. 16
of 1971)

vii. The Bihar Panchayati 15.5.1971 10 7 17
Raj (Amendment) Ordi·
nance, 1971 (Ordinance H
No. 54of 1971)
808
'
SUPREME COURT REPORTS 11987) 1 S.C.R.
.;.,
viii. The Bihar Municipal 20.5.197 l 10 7 12
A (Third Amendment)
Ordinance, 1971 (Ordi·
nance No. 57 of 197 l)

ix. The Patna Municipal 22.5.197 l 10 7 10
Corporation (Amendment)
Ordinance, 197 l
B
(Ordinance No. 58 of 197 l)

x. Th·e Bihar State Housing 14.9.1971 10 3 17
Board Ordinance, 1971
(Ordinance No. JOI of 197 l)

xi. The Bihar Co-operative 7.10.1971 10 2 25
c Societies (Second Amend-
ment) Ordinance, 197 i
(Ordinance No. 103 of 1971)

xii. The Bihar Agricultural 14.12. 1972 9 10 16
Produce Markets (Amend-
ment) Ordinance, 1972
D (Ordinance No. 6 of 1972)

xiii. The Bihar Medical Educa- 14.5.1972 9 7 18
tional Institutions
(Regulation and Control) ~
Ordinance, 1972
(Ordinance No. 69 of 1972)
E
xiv. The Rajendra Agricultural 15. l.1973 8 ll 17
Univers,ity (Amendment)
Ordinance, 1973
(Ordinance No. 2 of 1973)

xv. The Bihar Panchayati 22.2.1973 8 10 7
F Raj (Validating) Ordinance
1973 (Ordinance No. 5 of
i
1973)

xvi. The Bihar Panchayat 22.2.1973 8 10 7
Samitis and Zilla Parishads
(Amending and Validating
Ordinance, 1973
G (Ordinance No. 6of 1973)

xvii. The Bihar Khadi and l.10.1973 8 3 0
Village Industries
(Amendment} Ordinance,
1973 (Ordinance No. 122
of 1973)
H
DR. D.C. WADHWA v. STATE OF BIHAR !BHAGWATI, CJ.] 80')
-~A:
xviii. The Motor Vehicles 20.5.1971 7 8 17
(Bihar Amendment) Ordi- A
nance, 1971 (Ordinance
No. 56of 1971)

xix. The Bihar State Aid to 27.4.1977 7 8 4
Industries (Second Amend-
ment) Ordinance, 1974 B
(Ordinance No. 56 of 1974)

xx. The Bihar Irrigation Laws 27.8.1974 7 4 3
(Arnendement)
y Ordinance, 1974
(Ordinance No. 169 of 1974)

't xxi. The Bihar Irrigation Field 29.8.1974 7 4 3 c
Channel (Amendment) Ordi-
nance 1974, (Ordinance
No. 170 of 1974)

xxii. The Bihar Soil and Water 16.9.1974 7 3 15
Conservation and Land
Development {Amendment) D
Ordinance, 1974 (Ordi-
nance No. 174 of 1974)

xxiii. The Bihar Gramdan 26.2.1972 6 5 27
(Amendment) Ordinance ,.
1972 (Ordinance No. 12
of 1972) E
xx.iv. The Bihar Primary Edu- 5.9.1970 6 3 26
cation (Amendment) Ordi-
nance, 1970 (Ordinance
No. 6 of 1970)

xxv. The Bihar Regional Deve- 19.9.1974 6 3 12 F
lopmeht Authority Ordi-
nance, 1974 (Ordinance
No. 175 of 1974)

xxvi. The Chota Nagpur and 29. I0.1974 6 2 3
Santhal Parganas Autono-
mous Development Autho- G
rity (Fifth Amendment)
Ordinance, 1975 (Ordi-
naoce No. 197 of 1975)

xxvii. The Bihar Motor Vehicle 29.11.1975 6 2
Taxation (Fifth Amendment)
Ordinanc.e, 1975 (Ordi-
nance No. 207 of 1975)
H
810 SUPREME COURT REPORTS (1987] 1 S.C.R.
~
xx.viii. The Bihar Case (Amend· 2.12.1975 6 0
A ment) Ordinance, 1975
(Ordinance No. 209 ~f 1975)

xxix. The Bihar Public Land 5.12.1975 6 0 27
Encroachment (Amendment)
Ordinance, 1975 (Ordi-
B nance No. 210 of 1975)

xxx. The Bihar Motor Vehicles 5.12.1975 6 0 27
Taxation (Sixth Amend-
ment) Ordinance; 1975
(Ordinance No. 212 of 1975)
c
xxxi. The Bihar Motor Vehicles 5.12.1975 6 0 27
Taxation (Seventh Amend-
ment) Ordinance, 1975
(Ordinance No. 214of 1975)

·D
It will thus be seen that the power to promulgate ordinances was used
by the Government of Bihar on a large scale and after the session of
the State Legislature was prorogued, the same ordinances which had
ceased to operate were repromulgated containing substantially the
same provisions almost in a routine manner. This would be clear from
E the fact that on 26th August, 1973 the Governor of Bihar repro-
mulgated 54 ordinances with the same provisions and on 17th January,
1973, 49 ordinances were repromulgated by the Governor of Bihar
containing substantially the same provisions and again on 27th April,
1974, 7 ordinances were repromulgated and on 29th April, 1974, 9
ordinances were repromulgated with substantially the same provi-
F sions. Then again on 23rd July, 197 4, 51 ordinances were repro-
mulgated which included the self-same ordinances which had been
repromulgated on 27th and 29th April, 1974. On 18th March, 1979, 52
ordinances were repromulgated while on 18th August, 1979, 51 ordi-
nances were repromulgated containing substantially the same provi-
sions. 49 ordinances were repromulgated on 28th April, 1979 and on
G 18th August, 1979, 51 ordinances were repromulgated. This exercise of
making mass repromulgation of ordinances on the prorogation of the
session of the State Legislature continued unabated and on I Ith
August, 1980, 49 ordinances were repromulgated while on 19th January
1981, the number of ordinances repromulgated was as high as 53. The
following table shows how many times the same Ordinance was re-
H promulgated in order to keep its provisions in force:
DR. D.C. WADHWA v. STATE OF BIHAR (BHAGWATI, CJ.] 811
·-A
Name of Date of first Last date How many Total A
the Ordi- promulgation of re-pro- times period
nance mulgation re-pro- of the life
mu/gated of ordinance

1 2 3 4 5
i ...{

!. TheBihar 13. 1.68 12.8.81 39 about 14 years B
Sugarcane
(Regulation
of supply and

r Purchase)
Ordinance,
1968.
c
t 2. TheBihar
Panchayat Raj
14.8.70 19.1.81 35 about 12 years

(Amending and
Validating)
Ordinance,
1970.
D
3. The Bihar 5.9.70 22.4.81 37 about 12 years
Hindu Reli-
gious Trusts
(Amendment)
-+- Ordinance,
1970.

4. TheBihar
£
10.9.70 23.4.81 34 about 12 years
State Aid to
Industries
(Amendment)

~
Ordinance,
1970.

5. The Bibar 17.9.70 19.1.81 35 about 12 years
F
Khadiand
Village
Industries
•
(Amendment)
Ordinance,
1970.
G
It may be pointed out that the three ordinances challenged in these
writ petitions also suffered the same process of repromulgation from
time to time. The Bihar Forest Produce (Regulation of Trade) Third
Ordinance was first promulgated in 1977 and after its expiry, it was
repromulgated several times without it being converted into an Act of
the State Legislature and it continued to be in force until it was re- H
812 SUPREME COURT REPORTS [1987] 1 S.C.R.
'
-!\
A placed by Bihar Act No. 12 of 1984 on 17th May, 1984. So far as the
Bihar Intermediate Education Council Third Ordinance is concerned
it was initially promulgated in 1982 and after its expiry, it was again
repromulgated by the Governor of Bihar four times with the same
provisions and it was ultimately allowed to lapse on 6th June, 1985, but
13 then the Bihar Intermediate Education Council Ordinance, 1985,
was promulgated which contained almost the same provisions as those
contained in the Bihar Intermediate Education Council Third Ordi·
nance. Similarly the Bihar Bricks Supply (Control) Third Ordinance
was initially promulgated in 1979 and after its expiry it was repro·
mulgated by the Governor of Bihar from time to time and continued to
be in force until 17th May, 1984 when it was replaced by Bihar Act No.
C 13 of 1984. Thus the Bihar Forest Produce (Regulations of Trade)
Third Ordinance continued to be in force for a period of more than six
years, the Bihar Intermediate Education Council Third Ordinance re-
t
mained in force for a period of more than one year, while the Bihar
Bricks Supply (Control) Third Ordinance was continued in force for a
D period of more than five years.

The Government of Bihar, it seems, made it a settled practice to
go on repromulgating the ordinances from time to time and this was.
done methodologically and with a sense of deliberateness. Imme-
diately at the conclusion of each session of the State Legislature a
E circular letter used to be sent by the Special Secretary in the Depart·
ment of Parliamentary Affairs to all the Commissioners Secretaries,
Special Secretaries, Additional Secretaries and all heads of depart-
ments intimating to them that the session of the Legislature had been
got prorogued" and that under Article 213 Clause (2)(a) of the·
Constitution all the ordinances would cease to be in force after six
F . weeks of the date of reassembly of the Legislature and that they should
th.erefore get in touch >yith the Law Department and immediate action
should be initiated to get '"all the wncerned ordinances repromul-
gated .. , so that all thos, ordinances are positively icepromulgated be·
fore the date of their expiry. This circular letter also used to advise the
officers that if the old ordinances were repromulgakd in their original
form without any amendment, the approval of the Council of Ministers
G
would not be necessary. The petitioners placed before the Court a
copy of one such circular letter dated 29th July. 1w: l and it described )
the subject of the communication as "'regarding repromulgation of
ordinances ... It would be profitable to reproduce this circular letter
dated 29th July, 198 las it indicates the routine manner in which the
II ordinances were repromulgated by the Governor of Bihar:
DR. D.C. WADHWA v. STAIB OF BIHAR [BHAGWATI, CJ.) 813

"Letter No. P.A./Misc. 1040/80-872 A

GOVERNMENT OF BIHAR
DEPARTMENT OF PARLIAMENTARY AFFAIRS

From: Basant Kumar Dubey B
Special Secretary to the Govt.

To: All Commissioners and Secretaries,
All. Special Secretaries.
All Additional Secretaries,
All Heads of Departments
c
Patna 15-dated 29th July, 1981

Subject: Regarding re-promulgation of Ordinances.

Sir, D
I am directed to say that .the budget Session of the
Legislature (June-July 198 l) has been got prorogued after
the completion of the business of both the houses on July
28, 198 l.
E
Under the provisions of Art. 2 l3(2)(a) of the
Constitution all the Ordinances cease to be in force after
six weeks of the date of the reassembly of the Legislature.
This time the session of the Legislative Assembly has
begun on June 29, 1981 and that of the Legislative Council
on July· l, 1981. Therefore from I. 7. 1981, six weeks, that F
is, -12 days would be completed on 11.8. 1981 and if they are
not repromulgated before the aforesaid date, then all the
Ordinances will cease to be in force after 11.8. 198 l.

It is, therefore, requested that the Law Department
may be contacted and immediate action be initiated to get G
all the concerned Ordinances re-promulgated so that they
are definitely repromulgated before 11.8. 1981.

If the old ordinances are repromulgated in their origi-
nal form without any amendment, then the approval of the
Council of Ministers is not necessary. H
814 SUPREME COURT REPORTS [1987) 1 S.C.R.

A This should be given the top-most priority and neces-
sary action should be taken immediately.

Yours faithfully.
Sd/- Basant Kumar Dubey
Special Secretary to Bihar Government.··
B
This circular letter clearly shows beyond doubt that the repromulga-
tion of the ordinances was done on a massive scale in a routine manner
without even caring to get the ordinances replaced by Acts of the
Legislature or considering whether the circumstances existed which
rendered it necessary for the Governor to take immediate action by
c way of repromulgation of the ordinances. The Government seemed to
proceed on the basis that it was not necessary to introduce any legisla-
tion in the Legislature but that the law could be continued to be made
by the Government by having the ordinances repromulgated by the
Governor from time to time. The question is whether this practice
followed by the Government of Bihar could be justified as represent-
D ing legitimate exercise of power of promulgating ordinances conferred
on the Governor under Article. 213 of the Constitution.

The determination of this question depends on the true interpre-
tation of Article 213 which confers power on the Governor of a State to
promulgate ordinances. This Article in so far as material, reads as
+
E follows:

"213. ( l) If at any time, except when the Legislative
Assembly of a State is in session, or where there is a Legis-
lative Council in a State, except when both Houses of the
Legislature are in session, the Governor is satisfied that
F circumstances exist which render it necessary for him to
take immediate action, he may promulgate such Ordi-
nances as the L;rcumstances appear to him to require.

(2) An Ordinance promulgated under this Article shall
G have the same force and effect as an Act of the Legislature
of the State assented to by the Governor, but every such )
Ordinance-

(a) shall be laid before the Legislative Assembly of the
State, or where there is a Legislative Council in the State,
H before both the Houses, and shall cease to operate at th~
DR. D.C. WADHWA v. STAIB OF BlliAR IBHAGWATI, CJ.] 815

expiration of six weeks from the reassembly of the Legisla- A
ture, or if before the expiration of that period a resolution
disapproving it is passed by the Lagislative Assembly and
agreed to by the Legislative Council, if any, upon the pas-
sing of the resolution or, as the case may be, on the resolu-
tion being agreed to by the Council, and
B
(b) may be withdrawn at any time by the Governor.

Explanation-Where the Houses of the Legislature of a
State having a Legislative Council are summoned to re-
assemble on different dates, the period of six weeks shall
be reckoned from the later of these dates for the purposes C
of this clause ....................................... "

The power conferred on the Governor to issue Ordinances is in the
nature of an emergency power which is vested in the Governor for
taking immediate action where such action may become necessary at a
time when the Legislature is not in Session. The primary law making D .
authority under the Constitution is the Legislature and not the Execu-
tive but it is possible that when the Legislature is not in Session
circumstances may arise which render it necessary to take immediate
action and in such a case in order that public interest may not suffer by
reason of the inability of the Legislature to make law to deal with the
emergent situation, the Governor is vested with the power to promul- E
gate Ordinances. But every Ordinance promulgated by the Governor
must be placed before the Legislature and it would cease to operate at
the expiration of six weeks from the reassembly of the Legislature or if
before the expiration of that period a resolution disapproving it is
passed by the Legislative Assembly and agreed to by (he Legislative
Council, if any. The object of this provision is that since the power F
conferred on the Governor to issue Ordinances is an emergent power
exercisable when the Legislature is not in Session, an Ordinance pro-
mulgated by the Governor to deal with a situation which requires im-
mediate action and which cannot wait until the legislature reassem-
bles, must necessarily have a limited life. Since Article 17-l enjoins that
the Legislature shall meet at least twice in a year but six months shall G
not intervene between its last sitting in one session and the date
appointed for its first sitting in the next Session and an Ordinance
made by the Governor must cease to operate at the expiration of six
weeks from the reassembly of the Legislature, it is obvious that the
maximum life of an Ordinance cannot exceed seven and a half months
unless it is replaced by an Act of the Legislature or disapproved by the H
816 SUPREME COURT REPORTS 11987] 1 S.C.R.

resolution of the Legislature before the expiry of that period. The
A power to promulgate an Ordinance is essentially a power to be used to
meet an extra-ordinary situation and it cannot be allowed to be
"perverted to serve political ends." It is contrary to all democratic
norms that the Executive should have the power to make a law, !/ut in
order to meet an emergent situation, this power is conferred on the
B Governor and an Ordinance issued by the Governor in exercise of this
power must, therefore, of necessity be limited in point of time. That is
why it is provided that the Ordinance shall cease to operate on the
expiration of six weeks from the date of assembling of the Legislature.
The Constitution makers expected that if the provisions of the Ordi-
nance are to be continued in force, this time should be sufficient for
the Legislature to pass the necessary Act. But if within this time the
c Legislature does not pass such an Act, the Ordinance must come to an
end. The Executive cannot continue the provisions of the Ordinance in
t
force without going to the Legislature. The law-making function is
entrusted by the Constitution to the Legislature consisting of the re-
pr.esentatives of the people and if the Executive were permitted to
D continue the provisions of an Ordinance in force by adopting the
methodology of repromulgation without submitting to the voice of the
Legislature, it would be nothing short of usurpation by the Executive
of the law-making function of the Legislature. The Executive cannot
by taking resort to an emergency power exercisable by it only when the
Legislature is not in Session, take over the law-making function of the
E Legislature. That would be clearly subverting the democratic process
which lies at the core of our constitutional scheme, for then the people
would be governed not the laws made by the Legislature as provided in
the Constitution but by laws made by the Executive. The Government
cannot by-pass the Legislature and without enacting the provisions of
the Ordinance into an Act of the Legislature, repromulgate the Ordi-
F nance as soon as the Legislature is prorogued. Of course, there may be
a situation where it may not be possible for the Government to intro-
duce and push through in the Legislature a Bill containing the same
provisions as in the Ordinance, because the Legislature may have too
much legislative business in a particular Session or the time at the
disposal of the Legislature in a particular Session may be short, and in
G that event, the Governor may legitimately find that it is necessary to
repromulgate the Ordinance. Where such is the case, re-promulgation
of the Ordinance may not be open to attack. But otherwise, it would
be a colourable exercise of power on the part of the Executive to
continue an Ordinance with substantially the same provisions beyond
the period limited by the Constitution, by adopting the methodology
H of repromulgation. It is settled law that a constitutional authority can-
DR. D.C. WADHWA v. STAIB OF BIHAR [BHAGWATI, CJ.] 817
•-A
not do indirectly what it is not permitted to do directly. If there is a
constitutional provision inhibiting the constitutional authority from A
doing an Act, such provision cannot be allowed to be defeated by
adoption of any subterfuge. That would be clearly a fraud on the
constitutional provision. This is precisely what was pointed out by
•~ Mukharji, J. speaking for the Court in K.C. Gajapati Narayan Deo &
Ors. v. StateofOrissa, [1954] 1SCR1: B

"In other words, it is the substance of the Act that is mate-
,~ rial and not merely the form or outward appearance, and if
the subject matter in substance is spmething which is
beyond the powers of that legislature to legislate upon, the
form in which the law is. clothed would not save it from
J,. condemnation. The legislature cannot violate the constitu- c
tional prohibitions by employing an indirect method."

So also in P. Vajravelu Mudaliar v. Special Deputy Collector, Madras
& Anr., [1965] 1SCR614 a Constitution Bench of this Court observed
that when it is said that Legislation is a colourable one, what it means D
is that the Legislature has transgressed its legislative power in a covert
or indirect manner, if it adopts a device to outstep the limits of its
power. When the constitutional provision stipulates that an Ordinance
~-
' promulgated by the Governor to meet an emergent situation. shall
cease to be in operation at the expiration of six weeks from the reas-
sembly of the Legislature and the Government if it wishes the provi- E
sions of the Ordinance to be continued in force beyond the period of
six weeks has to go before the Legislature which is the constitutional

t
authority entrusted with the law making function, it would most cer-
tainly be a colourable exercise of power for the Government to ignore
the Legislature and to repromulgate the Ordinar.ce and thus to con-
tinue to regulate the life and liberty of the citizens through Ordinance F
( made by the Executive. Such a strategem would be repugnant to the
constitutional scheme as it would enable the Executive to transgress its
constitutional limitation in the matter of law making in an emergent
situation and to covertly and indirectly arrogate to itself the law
making function of the Legislature. Shri Lal Narain Sinha, appearing
on behalf of the State of Bihar urged that the Court is not entitled to G
~ examine whether the conditions precedent for the exercise of the
power of the Governor under Article 213 existed or not, for the
purpose of determining the validity of an Ordinance and in support of
this proposition, he strongly relied upon the decisions reported in
Bhagat Singh & Ors. v. Empire, AIR 1931PC111, Rajaram Bahadur
Kamlesh Narain Singh v. Commissioner of Income Tax, AIR 1943 PC H
818 SUPREME COURT REPORTS [1987] 1 S.C.R.

A 153; Laxmidhar Misra v. Rangalal & Ors., AIR 1950 PC 59 and R.C.
Cooper v. Union of India, (1970] 3 SCR 530. We do not see how these
decisions could possibly help in the. present case. They do not at all
deal with the question which we are called upon to decide here. It is
true that, according to the decisions of the Privy Council and this
B Court, the Court cannot examine the question of satisfaction of the
Governor in issuing an Ordinance, but the question in the present case
does not raise any controversy in regard to the satisfaction of the
Governor. The only question is whether the Governor has power to
repromulgate the same Ordinance successively without bringing it be-
fore the Legislature. That clearly the Governor cannot do. He cannot
assume legislative function in excess of the strictly defined limits set
C out in the Constitution because otherwise he would be usurping a
function which does not belong to him. It is significant to note that so
far as the President of India is concerned, though he has the same
i
power of issuing an Ordinance under Article 123 as the Governor has
under Article 213, there is not a single instance in which the President
D has, since 1950 till today, repromulgated any Ordinance after its ex-
piry. The startling facts which we have narrated above clearly show
that the Executive in Bihar has almost taken over the· role of the
Legislature in making laws, not for a limited period, but for years
together in disregard of the constitutional limitations. This is clearly
I
contrary to the constitutional scheme and it must be held to be impro-
per and irvalid. We hope and trust that such practice shall not be """
E continued in the future and that whenever an Ordinance is made and
the Government wishes to continue the provisions of the Ordinance in
force after the assembling of the Legislature, a Bill will be brought
before the Legislature for enacting those provisions into an Act. There
must not be Ordinance-Raj in the country.
F We must accordingly strike down the Bihar Intermediate Educ:,-
tion Council Ordinance, 1983 which is still in operation as unconstitu-
tional and void. Petitioner No. 1 has done enormous research and
brought this reprehensible practice of the Government of Bihar to the
notice of the Court and we would therefore direct that the State of
G Bihar shall pay to Petitioner No. l a .sum of Rs. 10,000 (rupees ten
thousand only) as and by way of cost of the writ petitions.

M.L.A. Petitions allowed.