Holding

The ordinance is constitutionally valid, the proviso’s reference to “new” member societies applies only to societies admitted after 23 August 2000, and the High Court’s dismissal of the petition stands.

Summary

The appellants sought a restrictive voters list under the Maharashtra Cooperative Societies (Second Amendment) Act, 2000, arguing that the amendment should apply to societies that had already become members before the amendment. The High Court dismissed their writ, holding the list was finalised before the amendment. The State Governor then promulgated a clarificatory ordinance retrospectively effective from the amendment date, which the appellants challenged as an act of legislative malice and an unauthorised use of emergency powers. The Supreme Court held that the ordinance was a valid exercise of the Governor’s power under Articles 213 and 123, that the word “new” in the proviso must be given its ordinary meaning limiting its operation to societies admitted after 23 August 2000, and that legislative malice is beyond judicial scrutiny absent a constitutional infirmity. Consequently, the High Court’s order was upheld and the appeal dismissed.

Issues considered

The validity of the Governor’s promulgation of the ordinance under Article 213 in the absence of an emergency.
Whether the ordinance can be struck down on the ground of legislative malice.
The correct interpretation of the word “new” in the proviso to Section 27(3) of the Maharashtra Cooperative Societies Act, 1960.
The relevance of the statement of objects and reasons in construing the proviso.
Whether the High Court erred in holding that the amendment did not affect the already finalised voters list.

Legislation cited

Constitution of Indias. Article 123, s. Article 174, s. Article 213
Maharashtra Co-operative Societies Act, 1960s. 27(3)
Maharashtra Cooperative Societies (Second Amendment) Act, 2000s. proviso to Section 27(3)
Maharashtra Co-operative Societies (Second Amendment) Ordinance, 2001

Subjects

constitutional lawseparation of powersordinancelegislative malicestatutory interpretationcooperative societiesvoting rightsarticles 123 213 174judicial review

Judgment

A GURUDEVDATIA VKSSS MARYADIT AND ORS.
v.
STATE OF MAHARASHTRA AND ORS.
"*- -
MARCH 22, 2001

B [G.B. PATIANAIK, UMESH C. BANERJEE AND B.N. AGRAWAL, JJ.]

Maharashtra Co-operative Societies Act, 1960-Section 27(3)- ~·
Maharashtra Cooperative Societies (Second Amendment) Act, 2000-Proviso
added on 23.8.2000 providing for a restricted list of voters'-High Court
c dismissed writ petition as.a voter's list had already been prepared-Later,
Ordinance promulgated, retrospectively from 23.8.2000, clarifying the posi-
lion that the amendment applies to new member societies only-On appeal
Held, language used in classificatory ordinance is clear and no outside aid
is required to interpret the same-Legislative malice is beyond the pale uf
jurisdiction of law courts when no constitutional invalidity is contended-
D Ordinance may be totally irrelevant in the present context, but if executive
thought if necessary it cannot be described otherwise-Impugned order
upheld along with constitutionality of the ordinance-Constitution of India,
1950-Articles 123, 213 and 174.

Administrative law-Doctrine of separation of powers-Promulgation j
E
of ordinance-Judicial reluctance noticed while inquii:ing about the status of a
statute-However, judiciary does not stand impotent before an obvious instance
of exercise of a manifestly unauthorised power-If constitutional safeguards
are not infringed, neither cw1 the ordinance nor the motive for such promulga-
tion could be exaMined.
F
Constitution of India-Articles 213 and 174-Promulgation of Olfli- -J..
nance by Govemor-Si@icient Constitutional saf1gualfl and rigours 1xist-
Power of legislation crmferred upon the Govtmor only when a satiefaction is
recolfled that such emergent circumstances exist-Powtr of the Executive is
only an emergent power to mut an emergency.
G
/nterpretaJion of StaJutes-Objects and Reasons-No necessity to lay
much emphasis as they mer11ly note the reasons for introducing an orrlinance-
TMy need not N looked into as they are not by itself a necessary aid to
_.( ...
construction but aid to construction if necessary-TMy may N looked into to
H (lSsess the intent of the legislature only in the event of a corifusion.
654
GURUDEVDATIA VKSSS MARYADIT v. STATE 655
~
..,. Appellants demanded a restrictive list of voters under the A
Maharashtra Cooperative Societies (Second Amendment) Act, 2000 which
came into force on 23.8.2000 and introduced as proviso to Section 27 (3) of
the Maharashtra Cooperative Societies Act, 1960 for the same. High Court
dismissed their writ petition as the voters list had already been finalised
before the said amendment. The Governor of the State promulgated an
B
Ordinance retrospectively effective from 23.8.2000 making it clear that
societies and the members who had already obtained membership before
the new proviso was added would not be affected. Appellants challenged
this Ordinance and the order of the High Court before this Court.

Appellants contended that promulgation of the Ordinance was c
an act of legislative malice to scuttle a free and fair election, that

. the objects and reasons of the Ordinance mentioned that the newly
added proviso had created a confusion while preparing voters list, which
negates the basis of the High Court judgment, and that as the ordinance
was merely clarificatory, no emergent situation for its promulgation
D
existed.

Dismissing the appeal, the Court

- l
HELD: 1. Doctrine of separation of powers have been the basis tenet
of our constitutional framework since in terms therewith each of the three
organs of the State viz., the judiciary, executive and the legislature would
E

... be operating on its own spheres and fields. Judicial reluctance have been
noticed and it is now well-settled both in this country and United States of
America as well as in United Kingdom that certainty and finality about the
status of a statute, contribute to judicial reluctance to Inquire whether it
compiled with all requisite formalities, but the decisions are not very F
uncommon which have laid down In no uncertain terms that there Is no
blanket rule ohuch judicial reluctance; neither the 'judiciary would stand
Impotent' before an obvious Instance of exercise of a manifestly unauthor-
lscd power. [662-G·H; 663-A·B)
G
Indira Nthru Gandhi v. Raj Narain, (1!175) Suppl. SCC 1; relied on.

... )._ Charlts W. Baktr d al v, Joe C. Caar, 369 US 186 7 L. ed. : 2d. 663
and Livanagt and Othtrs v. Rtginam, (1966) 1 ALL ER 650, referred to.

2. The law remains clarlned that judicial reluctance cannot be faulted H
656 SUPREME COURT REPORTS [2001] 2 S.C.R.
A in any way unless an element of constitutionality of the legislation comes up
for consideration. The issue of political question pertains however, to the
judicial review oflegislation. The political question doctrine has to he treated
to be a tool for maintenance of government order but there is no blanket rule
orjudicial reluctance since the question arises as to whether the case presents
the political question and for this purpose, facts of each case shall have to be
B
considered In Its proper perspective. Promulgation of an Ordinance under
Articles 123 and 213 of the Constitution is not an administra tiveor executive
action but being legislative in nature, it is subject only to constitutional limi·
tations applicable to an ordinary statute. The Ordinance, if, does not in-
fringe the constitutional safeguards, cannot be examined nor the motive for
c such a promulgation can he in question. [666-F-H; 667·A·B]

T. Venkata Reddy and Others v. State ofAndhra Pradesh, [1985] 3 SCC
198, followed.

A.K. Roy v. Union of India, [1982] 1SCC271; State of Gujarat & Anr. v.
D Raman Lal Keshav Lal Sani and Ors., [1983] 2 SCC 33; D.C. Wadhwa v. State
of Bihar, [1987] 1 SCC 378; and K. Nagaraj and Others v. State of Andhra
Pradesh and Another, [1985] 1 SCC 523, relied on.

3. Legislative malice is beyond the pale of jurisdiction of the law
courts, especially when there no constitutional invalidity is contended, the
E question of interference with the matter pertaining to the proviso or even
the Ordinance does not and cannot arise. The Ordinance may be ascribed
to be totally irrelevant in the present context but if the Executive in its ....
wisdom thought it f:t to promulgate such an Ordinance, it cannot describe
it as otherwise not r~quired even as and by way of a clarification since the
F administrative expediency permitted the legislative function on to the Ex·
ecutive. However, the High Court did not have the opportunity to consider
the Ordinance, which stood promulgated later on and during the pendency
1
of this appeal. (667-G-H; 668·A·Bl

4. Article 213 is to be read along with Article 174 which enjoins that
G the legislature shall meet at least twice in a year maintaining the demo·
cratic flavour of the Constitution with three separate organs of the State
functioning within its restrictive sphere. There is existing sufficient consti·
tutional safeguard and rigour evident from a plain reading of the language
used. Article 213 authorises promulgation of an Ordinance and confers a
H power of legislation on to the Governor only in the event of recording a
GURUDEVDATIA VKSSS MARYADIT v. STATE 657
satisfaction that circumstances exist which render it necessary for him to A
take immediate action and the Ordinance so promulgated can he laid
before the Legislative Assembly of the State at the expiry or six weeks from
the re-assembly of the Legislature. Therefore, the power of the Executive is
only an emergent power to meet the emergency. [669-C-F]

5.1. There is no necessity to lay such an emphasis on the statement of B
objects and reasons. They cannot but seem to note the reasons for intro-
duction of the promulgation of such an Ordinance. Further, after introduc-
tion of the Bill and during the debates thereon before the Parliament, if a
particular provision is inserted by reason or such a debate, question of
indication of any object in the objects and reasons or the Bill does not and c
cannot arise. They need to be looked into, not as a necessary aid but as an
aid to construction only if necessary. They may be looked into to assess the
intent of the legislature in the event of a confusion. This is not an indispen·
sable requirement but when faced with an imperative need to appreciate
the proper intent of the Legislature, statement may be looked into but not
otherwise. (670-C-D; H; 671-A-B]
D

5.2. The Legislature advisedly used the expression "new members"
in the proviso to Section 27(3), for which the clarificatory Ordinance was
promulgated. The legislaiure has used the expression 'new' • obviously
with an intent to ascribe something other than existing members and this E
additional requirement by reason of an additional appendage by way of a
statutory amendment must be stated to be that indicative of the intent and
to convey a definite meaning. The word 'new' in common English parlance
cannot hut mean something which was not existing and thus a society
becoming a member on or after 23rd August, 2000 and not prior thereto; it
F
cannot possibly apply to existing members but only new members after the
amendment. (671-C-D; G-H; 671-A]

D.C. Wadhwa v. State of Bihar, (1987] 1 SCC 378; Aswini Kumar Chose
and Another v. Arabinda Bose and Another, A.I.R. (1952) SC 369 and
Shashikant Laxman Kale and Anr. v. Union of India & Anr., A.I.R. (1990) SC G
2114, relied on.

CIC Insurance limited v. BankstQWn Football Club Ltd., (1997) 187
CLR p. 384; and New Castle City Council v. GIO General limited, (1998) 72
AL.JR 97 (Aust.) referred to. H
658 SUPREME COURT REPORTS [2001] 2 S.C.R.
A 6. The language used in the Ordinance is clear, categorical and on-
~
equivocal, no outside aid is required or is permissible for interpreting the
proviso to the Section by the AmendingActof2000. It is a cardinal principle
ofinterpretation of statute that the words of a statute must be understood in
their natural, ordinary or popular sense and construed according to their
grammatical meaning, unless such construction leads to some absurdity or
B
unless there is something in the context or in the object or the statute to
suggest to the contrary. The golden rule is that the words of a statute must ~-
prima facie be given their ordinary meaning. It is yet another rule of con-
struction that when the words of the statute are clear, plain and unambigu-
ous, then the Courts are bound to give effect to that meaning, irrespective of
c the consequences. The words themselves best declare the intention of the law
giver. The Courts have adhered to the principle that efforts should be made
to give meaning to each and every word used hy the legislature and it is not
a sound principle of construction to brush aside words in a statute as being
inapposite surpluses, if they can have a proper application in circumstances
D conceivable within the contemplation of the statute. The expression "any
new member society" occurring in the proviso to Section 27(3) when con-
strued, it conveys the only meaning th a tit refers to the societies to be formed
thereafter and not of those societies which have already become member
societies ofthe federal society. [675-C-H; 676-A]

E 7. The judgment of the High Court does not suffer from any inlir- i
mity. The Ordinance was promulgated to clear any doubt in the matter of
interpreting the proviso. The second proviso inserted by the Ordinance
removed any doubt or controversy as it has been indicated there in that the
first proviso will not apply to the member society which has invested any
F part or Its fund In the share of the federal society before the commence·
ment of the Maharashtra Co-operative Societies (Amendment) Act, 2000
doted 20th August, 2000. The aforesaid Ordinance also has been given a
retrospective effect from 23rd A11g11st, 2000. Therefore, the so-called pro·
hlbltlon contained In the first proviso to Section 27(3) will not apply to all
those socletloo which have already become members or the federal society
G prior to 23rd August, 2000. [676·B·D]

CIVIl..APPELLATE JURISDICTION: Civil Appeal No. 2298 of2001.

From the Judgment and Order dated 4.12.2000 of the Bombay High
~ -
H Court in W.P. No. 6637 of 2000.
GURUDEVDATTA VKSSS MARYADIT v. STATE [BANERJEE, J.] 659
Soli J. Sorabjee, Attorney General, K.N. Rawat, Additional Solicitor A
~
General, VA. Bobde, VA. Mohta, Bhimrao Naik, Ashok Desai, A. Y. Sakhare,
P.N. Misra, A.A. Kumbhakoni, Uday Umesh Lalit, S.V Deshpande, Shivaji
M. Jadhav, T. Raja and Sunil Kr. Verma for the appearing panies.

The Judgment of the Court was delivered by
B
BANERJEE, J. Leave granted.
'f
Urgency of the situation has prompted this Court to dispose of the
present Special Leave Petition under Article 136 of the Constitution even
at the stage of admission: Urgency being initiation of election process of
Kolhapur District Central Co-operative Bank in the State of Maharashtra. c
Incidentally, Bombay High Court has negatived the petitioners' contention of
restrictive list of voters in terms of the proviso to Section 27 (3) as
added by the amendment to the Maharashtra Co-operative Societies Act, 1960
~
- the primary reason being - the entire election programme, including the list
of voters stands finalised on June 30, 2000 and the amendment by way of D
addition to the proviso was effected on 23rd August, 2000: The introduction
oi the amended proviso being effected subsequent to the finalisation of
the voters list, the High Court concluded that basically, the inclusion of

... r the Societies which were eligible on 30th June, 2000 could not be faulted
on the basis of the amendment which was brought into force subsequently
and they cannot be denied the right to vote and hence the Appeal before this E
Court.

Before adverting to the submissions advanced on the score as above,
one factual clement ought to be noticed at this juncture to wit: promulgation
of an Ordinance being Maharashtra Ordinance No. X of 2001 by the
F
Governor of the State on 27.02.2001 during the short pendcncy of this
appeal.
We shall be adverting to the same shortly in detail but before so doing
relevant provisions of the Maharashtra Co-operative Societies Act, 1960
[Section 27(3)) together with the amendment to the proviso as effected on G
23rd August, 2000 ought to be noticed immediately herein below:·

- .a. Section 27(3):

"A society which has invested any part of its funds in the shares of
any federal society, may appoint one of its members to vote on its H
660 SUPREME COURT REPORTS [2001] 2 S.C.R.
A behalf in ·the affairs of that federal society and accordingly such )- ~
member shall have the right to vote on behalf of the society"

Proviso to the Section however reads as below:~

"Provided that, any new member society of a federal society shall be
B eligible to vote in the affairs of that federal society only after the
completion of the period of three years from the date of its investing
any part of its fund in the shares of such federal society;

provided further that, where the election is to a reserved seat under
Section 73-B, no person shall have more than one vote."
c
The Ordinance as promulgated by the Co-operation and Textile Depart-
ment of the Government of Maharashtra and as published in the Government
Gazette in terms of Clause Ill of Article 348 of the Constitution being .,_
Maharashtra Ordinance X of 2001 may also be noticed at this juncture only
as the issue centres round th~ Ordinance as well and the relevant extract of
D
the same, however, is set out as below:-

"!.Short title and Commencement - (1) This Ordinance may be called
the Maharashtra Co-operative Societies (Second Amendment) Ordi-
nance, 200 !.
E 1
(2) It shall be deemed to have come into force on the 23rd August,
2000.

2. Amendment of Section 27 of Mah.XXIV of 1961 - In Section
27 of the Maharashtra Co-operative Societies Act, 1960-
F
(a) in sub-section (3)-

(i) after the first proviso, the following proviso shall be inserted as
the second proviso, namely:-

G "Provided further that nothing in the first proviso shall apply to the
member society, which has invested any part of its fund in the shares
of the federal society, before the commencement of the Maharashtra
Co-operative Societies (Amendment) Act, 2000."

(ii) In the existing second proviso, for the words "provided further
H that" the words "provided also that" shall be substituted:
GURUDEVDAITA VKSSS MARYADIT v. STATE [BANERJEE, J.] 661
(b) to sub-section (3A), the following proviso shall be added, namely, A

"Provided that, nothing in sub-section (3A) shall apply to an indi-
vidual member of a society, who has been emolled as a member of
that society, before the commencement of the Maharashtra Co-
operative Societies (Amendment) Act, 2000."
B
Mr. V.A. Bobde, the learned Senior Counsel in support of the appeal
with his usual eloquence introduced the concept of legislative malice in the
matter of promulgation of the Ordinance. 'Malice' in common acceptation,
admittedly, means and implies 'spite' or 'ill will' and it is having regard to
the common English parlance of the word 'malice' that Mr. Bobde contended
that promulgation of the Ordinance is an abuse of the legislative power and
c
process amounting to a fraudulent user thereof and thus the malice.

It is in this context Mr. Bobde placed very strong reliance on the
statement of objects and reasons for promulgation of the same. In the normal
course of events we would not have delved into the same in detail as is being D
done herein below, but for its significance in the matter under consideration
and elaborate submissions thereon, the statement of objects and reasons for
promulgation of the Ordinance is noticed herein below:-

"By inserting proviso to sub-section (3) of Section 27 of the
Maharashtra Co-operative Societies Act, 1960, by Maharashtra Act E
No.XL of 2000, provision has been made to give voting rights only
to such member societies, which have completed three years from the
date of their admission as members, in the election of Federal Society.
Similarly, provision has also been made in sL.b-section (3A) of Section
27, to give voting rights to only such individual members who have
F
completed two years from the date of admission as members, in the
election of a society. After these provisions came into effect, election
programmes of some societies in the State were declared and while
preparing the voters lists, there was some confusion amongst the co-
operative as to whether names of the societies and individuals who
were already admitted as members before coming into force of the G
said Act, that is, before the 23rd August, 2000, could be included in
the voters list. Some societies have even filed Writ Petitions in the
matter in the Hon'ble High Court and matters have reached to the
Supreme Court. In these cases, the Government has taken a stand
before the Supreme Court that the amended provisions would not H
662 SUPREME COURT REPORTS [2001) 2 S.C.R
A affect the voting rights of member societies or members who had
already become members prior to the said amendment. Therefore,
with a view to leave no room for doubt the Government considers it
necessary to clarify, by making a specific clarificatory provision in
the Act that the societies and the members who have already obtained
the membership before the 23rd August, 2000, that is, the date of
B
coming into force of the said amendment Act.

2. As both Houses of the State Legislature are not in session and the
,._1
Governor of Maharashtra is satisfied that the circumstances exist Y

which render it necessary for him to take immediate action further to
c amend the Maharashtra Co-operative Societies Act, 1960 (Mah.
XXIV of 1961), for the purpose of aforesaid, this Ordinance is
promulgated."

On an analysis of the statement as noticed in the preceding paragraph,
Mr. Bobde contended that the whole pmpose of promulgation of the Ordi-
D nance has been purposive and to scruttle a free and fair election. It has been
contended that legislation cannot be a tool to satisfy a political end and the
conclusion is irresistible in the contextual facts on this connt only if English
words are given ordinary common English parlance. The factum of having
a confusion while preparing the voters list as stated in the statement of objects
and reasons, negates the basis of the High Court judgment to wit: the voter
E
list stands prepared and concluded by 30th June, 2000. Mr. Bobde contended
that by reason of so-called confusion (as noticed above), the Ordinance stands
promulgated as the legislature was not in session by way of a clarificatory
order. The submissions apparently, apmt from being attractive seems ·to be
of some consequence rendering it an obligation for the Court to delve into
F the issue in slightly more greater detaiL

The tenability of the submissions as above, however, would be dis-
cussed later in this judgment, but before so doing, we need to recapitulate
the law as regards the jurisdiction of the court to assess the question of
justiciability of the legislation by one of the wings of the Constitution.
G Doctrine of separation of powers have been the basic tenet of our constitn-
tional framework since in terms therewith each of the three mgans of the State
viz., the judiciary, executive and the legislature would be operating on its own
spheres and fields. It is to be noted that there has been a catena of cases
wherein this judicial reluctance have been noticed and it is now well-settled
H both in this conntry and United States of America as well as in United
GURUDEVDATIA VKSSS MARYADIT v. STATE [BANERJEE, J.] 663
Kingdom that certainty and finality about the status of a statute, contribute A
to judicial reluctance to inquire whether it complied with all requisite
~.
formalities, but the decisions are not very uncommon which have laid down
in no uncertain terms that there is no blanket rule of such a judicial reluctance
neither the 'judiciary would stand impotent' before an obvious instance of
exercise of a manifestly unauthorised power: The concept of political question
B
doctrine, being basically of American origin, cannot possibly be confidently
reached until the matter is considered with special care, upon bestowing
,._ '>( proper attention and in the event of a conclusion which lends credence to the
question raised viz., as to whether the question is a political question or not,
Judicial inclination to interfere cannot be faulted though however not other-
wise. See in this context Charles W Baker et al: v. Joe C. Caar, (369 US c
186: 7 L.cd.:2d.663). This however, needs to be emphasised that the same
stands subject to the facts of each case and it is almost a well-neigh
impossibility to even adumbrate as to what will and what will not constitute
judicial reluctance to interfere, except however, the field which can be
described to be as ad hominem nor even any attempt to draw the line since D
each case is to be decided on the given facts. In this context the decision of
the Privy Council in the case of liyanage and Others v. Reginam, (1966) 1
All ER 650, ought also to be noticed wherein, Their Lordships of the Privy
Council introduced the concept of legislation ad hominem and struck down
a legislation by reason therefor. Lord Pearce in his inimitable style observed E
as below:

"Do the Acts of 1962, however, otherwise than in respect of the
Minister's nomination, usurp or infringe that power? It goes without
saying that the legislature may legislature, for the generality of its
subjects, by the creation of crimes and penalties or by enacting rules
F
relating to evidence. But the Acts of 1962 had no such general
intention. They were clearly aimed at particular known individuals
who had been named in a White Paper and were in prison awaiting
their fate. The fact that the learned judges declined to convict some
of the prisoners is not to the point. That the alterations in the law were G
not intended for the generality of the citizens or designed as any
improvement of the general law, is shown by the fact that the effect
of those alterations was to be limited to the participants in the January
~
coup and that after these had been dealt with by the judges, the law
should revert to its normal state. H
664 SUPREME COURT REPORTS (2001] 2 S.C.R.
A Such a lack of generality, however, in criminal legislation need
not, of itself, involve the judicial function, and their lordships are not
prepared to hold that every enactment in this field which can be
described as ad hominem and ex post facto must inevitably usurp or
infringe the judicial power. Nor do they find it necessary to attempt
the almost impossible task of tracing where the line is to be.drawn I
B
between what will and what will not constitute such an interference.
Each case must be decided in the light of its own facts and
circumstances, including the true purpose of the legislation, the
situation to which it was directed, the existence (where several
enactments are impugned) of a common design, and the extent to
c which the legislation affects,by way of direction or restriction, the
discretion or judgment of the judiciary in specific proceedings. It is
therefore necessary to consider more close! y the nature of the
legislation challenged in this appeal."

The observations of Lord Pearce finds approval of this Court in the case
D
of Indira Nehru Gandhi v. Raj Narain, (1975] Suppl SCC I.

Mr. Bobde contended that the Ordinance in question is clearly a
legislation ad-hominem being directed solely to the control of voting right in
respect of the affairs of the most cash- riched Federal Cooperative Bank in
E Maharashtra. Mr. Bobde contended that Kolhapur Bank is most cash-riched
Co-operative Bank in the State of Maharashtra with an annual turnover of
Rs.1500 crores: Its financing is around 1200 crores including 600 crores of
sugar co-operative society and because of the sugar factories, Kolhapur
District has maximum concentration on Co-operative societies amongst all the
F districts of the State of Maharashtra.

It is at this juncture some decisions of this Court ought also to be
noticed and elucidation of law as propounded with the passage of time - the
decisions being:

G (i) A.K. Roy v. Union of India, (1982] I SCC 271 wherein this Court
in paragraphs 28 and 29 of the Report observed as below:

"28. There are however, two reasons why we do not propose to
discuss at greater length the question as regards the justiciability of
H the President's satisfaction under Article 123 (I) of the Constitution.
GURUDEVDATIA VKSSS MARYADIT v. STATE [BANERJEE, J.] 665
... In the first place, the ordinance has been replaced by an Act. It is true, A
.+ as contended by Shri Tarknnde, that if the question as regards the
justiciability of the President's satisfaction is not to be considered for
the reason that the ordinance has become an Act, the occasion will
hardly ever arise for considering that question because, by the time
the challenge made to an ordinance comes up for consideration before
B
the court, the ordinance almost invariably shall have been replaced
,. by an Act. All the same, the position is firmly established in the field
~ of constitutional adjudication that the court will decide no more than
needs to be decided in any particular case. Abstract questions present
interesting challenges, but it is for scholar and textbook writers to
uuravel their mystique. It is not for the courts to decide questions c
which are but of academic importance.

29. The other reason why we are not inclined to go into the question
as regards the justiciability of. the President's satisfaction under
Article 123 (I) is that on the material which is placed before us, it
is impossible for us to arrive at a conclusion one way or the other. D
We are not sure whether a question like the one before us would be
governed by the rule of burden of proof contained in Section 106 of
the Evidence Act, though we are prepared to proceed on the basis that
the existence of circumstances which led to the passing of the
.... Ordinance is especially within the knowledge of the executive. But E

. before casting the burden on the executive to establish those circum-
stances, at least a primafacie case must be made out by the challenger
to show that there could not have existed any circumstances neces-
sitating the issuance of the Ordinance. Every casual or passing
challenge to the existence of circumstances, which rendered it nee-
F
essary for the President to take immediate action by issuing an
ordinance, will not be enough to shift the burden of proof to the
executive to establish those circumstances. Since the petitioners have
not laid any acceptable fonndation for us to hold that no circum-
~ stances existed or could have existed which rendered it necessary for
the President to take immediate action by promulgating the impugned G
Ordinance, we are nnable to entertain the contention that the Ordi-
nance is unconstitutional for the reason that the pre-conditions to the
.~ ,),. exercise of the power conferred by Article 123 are not fulfilled. That
is why we do not feel called upon to examine the correctness of the
submission made by the learned Attorney-General that in the very H
666 SUPREME COURT REPORTS [200 I] 2 S.C.R.
A nature of things, the "satisfaction" of the President which is the basis
on which he promulgates an ordir.ance is founded upon materials }
which may not be available to others and which may not be disclosed
without detriment to public interest and that, the circumstances
justifying the issuance of the Ordinance as well as the necessity to
issue it lie solely within the President's judgment and are, therefore,
B
not justiciable."

(ii) The second in the line of citations from the Bar is the decision in )'
..
State of Gujarat & Anr. v. Raman Lal Keshav Lal Soni & Ors., [1983] 2 SCC
33, since this particular decision does not lend any particular assistance or
c so to say, advance the issue to the contentions raised in the matter further,
we refrain ourselves from dealing with the same, as such we need not dilate
on that score any further.

(iii) The third decision being the locus classic us to the issue, D. C.
Wadhwa v. State of Bihar, [1987] 1 SCC 378 wherein this Court in no
D
uncertain terms observed that since the primary law making authority under
the Constitution is the Legislature and not the Executive and it is possible
that circumstances may arise which render it necessary to take immediate
action when the Legislature is not in session, in such a case and in order that
public interest may not suffer by reason of the failure of the legislature to
E deal with the emergent situation, the Governor is vested with the power to T

F
promulgate the Ordinance. This Court further observed that the power to
promulgate Ordinance is essentially a power to be used to meet an extra-
ordinary situation though it cannot be allowed to be perverse to serve political
ends. It is on this count of judicial ad-negation Mr. Bobde found fault with
the judgment under appeal since the instant Ordinance, as appears from the
-
Statement of objects and reasons, cannot but be so declared. The law thus
remains clarified that judicial reluctance cannot be faulted in any way unless
of course an element of constitutionality of the legislation comes up for
consideration. The issue of political question as argued before this Court in
the matter and noticed above, pertains, however, to the judicial review of ~
G legislation. A large number of decisions have been cited though not noticed
above, since the same do not stand to any further assistance at the bar but
judicial ad-negation has been the resultant conclusion in all these cases unless
of course, there is any violation of any fundamental right and the constitu- ,(
tionality is the issue between the parties as noted above. The political question
H doctrine has however, to be treated to be a tool for maintenance of govern-
GURUDEVDATIA VKSSS MARYADIT v. STATE [BANERJEE,!.] 667
mental order but as noticed above, ' there is no blanket rule of judicial A
~ reluctance since the question arises as to whether the case presents the
political question and for this purpose, facts of each case shall have to be
considered in its proper perspective so as to assess the situation. This,
however, opens up a wider debate on to the different issue of Articles 123
and 213 and the action is legislative in character. It is not an administrative
B
or executive action but being legislative in nature, it is subject only to
-> constitutional limitations applicable to an ordinary statnte. 111e Ordinance, if
~
does not infringe the constitutional safeguards, cannot be examined nor the
motive for such a promulgation can be in question. Mr. Desai appearing for
Intervenor Respondent very strongly urged that the Court cannot examine the
satisfaction of the Governor in promulgating an ordinance and the law is well c
settled on this count by this Court in the Nagaraj's case K. Nagaraj and
Others.v. Stale of Andhra Pradesh and Another, [1985] 1 SCC 523, wherein
this court held that it is impossible to accept the submission that the ordi11ance
can be invalidated on the ground of non-application of mind. It is a power
of the Executive to legislate and this power is plenary within its field like
D
the power of the State Legislature to pass the laws. 111e Constitution Bench's
judgment in T. Venkata Reddy's case (T. Venkatu Reddy und 01hers v. State
of Andhra Pradesh, [1985] 3 SCC 198), wherein the earlier judgment of the

-.
Federal Court in l.axmi Narain Das v. Province of Bihar, (1949) FLR 693,
have been followed, re- affirmed the observations in Nagaraja's case, the
Constitution Bench observed that the motive of Legislature in passing a E
statute is beyond the scrutiny of the courts. It is not only the propriety to
follow the Constitutional Bench judgment but we are definitely of tl1e opinion
and view that by no stretch, the courts can interfere a legislative malice in
passing a statute. Interference is restrictive in nature and that too on the
constitutionality aspect and not beyor.d the same. F
We may thus note here that though a definite motive has been ascribed,
we are not in a position to lend concurrence to Mr. Bobde' s submission that
there is any legislative malice. Legislative malice is beyond the pale of
jurisdiction of the law courts and since there is no constitutional invalidity
neither the same has been contended before us, question of interference with G
the matter pertaining to the first proviso or even the ordinance does not and
cannot arise. In any event, the Ordinance, strictly speaking, may be ascribed
Jo.. to be totally irrelevant in the present context, but if the executive in its
wisdom thought it fit to promulgate such an ordinance, it is no part of our
duty to describe it as othetwise not required even as and by way of a H
,-

668 SUPREME COURT REPORTS [2001] 2 S.C,R
A clarification since the administrative expediency permitted the legislative
function on to the executive.

Needless to repeat the factual score that the High Court hadn't had the
opportunity to consider the Ordinance which stands promulgated only after
the disposal of the appeal and during the pendency of the matter before this
B court: The Ordinance, however, has a retrospective operation and coincides
with the date of introduction of the amended proviso to Section 27(3) of the
Act of 1960.

On the wake of the aforesaid, we cannot proceed with the matter any
C further without, however, having a close look at the Ordinance as promul-
gated and in the event of experiencing any difficulty, the Statement of objects
can be considered but if it is'otherwise, Mr, Bobde's submission would pale
into insignificance and thus have to be stamped as wholly untenable.

It is on this score, however, that Article 213 becomes relevant being
D the source of power of the Executive to use legislative functions. Article 213
in so far as is material reads as below:

"213. (1) If at any time, except when the Legislative Assembly of a
State is in session, or where there is a Legislative Council in a State,
except when both Houses of the Legislature are in session, the
E
governor is satisfied that circumstances exist which render it neces-
sary for him to take immediate action, he may promulgate such
ordinances as the circumstances appear to him to require:

• • • •
F
(2) An ordinance promulgated under this article shall have the same
force and effect as an Act of legislature of the State assented to
by the Governor, but every such Ordinance -

(a) shall be laid before the Legislative Assembly of the State,
G or where there is a Legislative Council in the State, before
both the Houses, and shall cease to operate at the expira-
tion of six weeks from the re-assembly of the Legislature,
or if before the expiration of that period a resolution
disapproving it is passed by the Legislative Assembly and
H agreed to by the Legislative Council, if any, upon the
GURUDEVDATIA VKSSS MARYADIT v. STATE [BANERJEE, J.] 669
passing of the resolution or, as the case may be, on the A
resolution being agreed to by Council; and

(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, B
the period of six weeks shall be reckoned from the later of those dates
for the purposes of this clause."

Article 213 however, is to be read along with Article 174 which enjoins
that the legislature shall meet at least twice in a year but six months shall
not intervene between its last sitting in one session and the date appointed C
for its first sitting in the next session. Thus maintaining the democratic
favour of the Constitution with three separate organs of the State functioning
within its restrictive sphere. There is existing sufficient constitutional safe-
guard and rigour and a plain reading of the language used therein depicts the
same. D
Article 213 authorises promulgation of an Ordinance and confers a
power of legislation on to the Governor only in the event of recording a
satisfaction that the circumstances exist which render it necessary for him to
take immediate action and he may thus promulgate such an Ordinance as the
circumstances appear to him to require and the Ordinance so promulgated can E
be laid before the Legislative Assembly of the State at the expiry of six weeks
from the re-assembly of the Legislature. It is in this perspective it be noted
that the power of the Executive is only an emergent power to meet the
emergency. Mr. Bobde posed a question as a part of his submission as regards
the nature of the emergency since the statement of objects records the
F
Ordinance to be a mere clarificatory Ordinance, there seems to be some
substance since what was implicit has been stated to be made explicit by way
of clarification according to the plain English meaning of the words used in
the statement. This is, however, on assumption that we need to delve into the
matter in such detail. The emergency admittedly cannot thus be said to have
occurred in order to have an emergent legislation by exercise of an emergent G
power of legislation by the Executive. The decision in Wadhwa's case (supra)
has been rather categorical that the Executive cannot by taking resort to an
emergency power takeover the law making function of the legislature and iu
the event, the executive assume such power, the same would be clearly
subverting the democratic process which lies at the core of our constitutional H
"389.
670 SUPREME COURT REPORTS (2001) 2 S.C.R.
A scheme, for this, the people would be governed not by the laws made by the
Legislature as provided in the Constitution but by laws made by the Execu- ).
tive. We do appreciate such an exposition of law and lend our concurrence
thereto in its entirety. The exception, however, to the above has also been
pointed out in Wadhwa's case (supra) that in the event of there being too
many legislative businesses in a particular session or the time at the disposal
B
of the Legislature is rather short, in which event, the Governor may legiti-
mately find it necessary to re-promulgate the Ordinance and where such is
the case, admittedly, the Ordinance cannot possibly be under any criticism.
While it is true, that the submission remains very attractive but the fact
remains, is it necessary for us to lay such an emphasis on the statement of
c objects and reasons in the matter under consideration, the answer, however,
cannot but be in the negative. The objects and reasons cannot but seem to
note the reasons for intrnduction of the promulgation of such an Ordinance.
It has no correlation by itself with the objective when the same was prom-
ulgated. The observations of this Court in Ashwini Kumar's case (Aswini )"
Kumar Ghose and Another v. Arabinda Bose and Another, AIR (1952) SC
D
369 lends credence to such an observation as noticed herein before wherein,
Patanjali Sastri, C.J. (as His Lordship then was) stated very succinctly in
paragraph 32 of the Report as below:

"32. As regards the propriety of the reference of the Statement of
E objects and reasons, it must be remembered that it seeks only to -,.- ~

explain what reasons induced the mover t<' introduce the Bill in the
House and what objects he sought to achieve. But those objects and
reasons may or may not correspond to the objective which the
majority of members had in view when they passed it into law. The
F Bill may have undergone radical changes during its passage through
the House or Houses, and there is no guarantee that the reasons which
led to its introduction and the objects thereby sought to be achieved
have remained the S'!1fie throughout till the Bill emerges from the

G
House as an Act of the Legislature, for they do not form part of the
Bill and are not voted upon by the members. We, therefore, consider
that the Statement of 9bjects and reasons appended to the Bill should
be ruled out as an aid to the construction of a statute."
-
'
Further, after introduction of the Bill and during the debates thereon

H
before the Parliament, if a particular provision is inserted by reason of such
a debaie, question of indication of any ~jeet in the objects and reasons of
"'
GURUDEVDATIA VKSSS MARYADIT v. STATE [BANERJEE, J.] 671
the Bill does not and cannot arise. The statements of objects and reasons need A
to looked into though not by itself a necessary aid as an aid to. construction:
only if necessary. To assess the intent of the Legislature in the event of there
being any confusion, statement of objects and reasons may be looked into
and no exception can be taken therefor -this is not an indispensable require-
ment but when faced with an imperative need to appreciate the proper intent
B
of the Legislature, statement may be looked into but not 9therwise. The
submission of Mr. Bobde thus can only be given credence only in the event
of there being any necessity of such a requirement in the facts of the matter
under consideration, to wit : some confusion somewhere for assessment of
the intent of the Legislature.
c
The proviso for which the clarificatory Ordinance has been promul-
gated, it appears that the Legislature advisedly used the expression 'new
members'. Members have been defined under the State Co-operative
Societies Act (Section 2(19) of the Act of 1960) meaning - a person joining
in an application for registration of a co-operative society which is
subsequently registered or a person duly admitted to membership of his
D
society after registration and includes a nominal associate or sympathizer
member. Section 27 (3) proviso as noticed above adds an appendage
'any new' before the member society: whereas Mr. Bobde contended that the
appendage 'any new' cannot but mean though existing but not voted since
Section 27 on which the proviso as noticed above was added by Maharashtra E
Co-operative Societi~s (Second Amendment) Act, 2000 which came into
force on and from 23rd August, 2000 and deal with the parties voting rights
in terms of Section 27 of the Act of 1960, any other interpretation would
be in violent departure from the statutory intent and it is on this score
Mr. Bobde did put very strong reliance o.s to the understanding of the F
Government as is laid down in the Statement of objects and reasons.
Statement of objects as noticed above can only be looked into in the event
+ of there being any requirement therefor and not otherwise: The meaning of

- the expressions used in the legislation, if is of doubtful nature, may be a
guide or an aid but not otherwise. The legislature has used the expression
'new' - obviously with an intent to ascribe something other than existing
members and this additional requirement by reason of an additional append-
age by way of a statutory amendment, must be stated to be that indicative
G

of the intent and to convey a definite meaning. The word 'new' in common
English parlance cannot but mean something which was not existing and thus
a society becoming a member on or after 23rd August, 2000 and not prior H
672 SUPREME COURT REPORTS [2001] 2 S.C.R.
A thereto: it cannot possibly apply to existing members but only new members
after the amendment.

While the statements of objects and reasons in the normal course of
event cannot be termed to be the main or principal aid to construction
B but in the event it is required to discern the reasonableness of the classifi-
cation as in the case of Shashikant l.oxman Kale and Anr. v. Union of
India & Anr., AIR (1990) SC 2114, statement of objects and reasons can be
usefully looked into for appreciating the background of legislature's classi-
fication. This Court in para 16 of the judgment last noticed had the following
to state:
c
"For determining the purpose or object of the legislation, it is
permissible to look into the circumstances which prevailed at the time
when the law was passed and which necessitated the passing of that
law. For the limited purpose of appreciating the background anu )
D the antecedent factual matrix leading to the legislation, it is permis-
sible to look into the Statement of Objects and Reasons of the
Bill which actuated the step to provide a remedy for the then existing
malady. In a. Thangal Kunju Musaliar v. M. Venkitachalam

-
Patti, [1955] 2 SCR' 1196 : AIR (1956) SC 246, the Statement of
E Objects and Reasons was used for judgin~ the reasonableness of a
classification made .in an enactment to see if it infringed or
was contrary to the Constitution. In that decision for determining
the question, even affidavit on behalf of the State of "the circum-
stances which prevailed at the time when the law there under
consideration had been passed and which necessitated the passing
F of that law" was relidd on. It was reiterated in State of West Bengal
v. Union of India, [1964] 1 SCR 371 : AIR (1963) SC 1241 - that
the Statement of Objects and Reasons accompanying a Bill, when

-
introduced in Parliament, .can be used for 'the limited purpose
of understanding the background and the antecedent state of affairs
G leading up to the legislation. Similarly, in Pannalal Binjraj v. Union
of India, [1957] SCR 233 : AIR (1957) SC 397, a challenge
to the validity of classification was repelled placing reliance
on an affidavit filed.on behalf of the Central Board of Revenue
disclosing the true object of enacting the impugned provision in the
H Income-tax Act."
r-

GURUDEVDATIA VKSSS MARYADIT v. STATE [BANERJEE, J.] 673
The High Court of Australia also without any departure therefrom A
permits reference to the explanatory memorandum to the Bill in order to
ascertain the mischief which the statute was intending to remedy: See in this
context CIC Insurance limited v. Bankstown Football Club l.Jd, (1997) 187
CLR p. 384 wherein it has been stated;

"It is well settled that at common law, apart from any reliance upon B
s 15 AB of the Acts Interpretation Act, 1901 (Cth), the court may have
regard to re;xirts of law reform bodies to ascertain the mischief which
a statute is intended to cure (Black-Clawson International l.Jd v.
Papierwerke Waldhof-Aschaffenburg, (1975) AC 591 at 614, 629,
638). Moreover, the modem approach to statutory interpretation (a)
insists that the context be considered in the first instance, not merely
c
at some later stage when ambiguity might be thought to arise, and (b)
1.1ses "context" in its widest sense to include such things as the existing

state of the Jaw and the mischief which, by legitimate means such as
those just mentioned, one may discern the statute was intended to
remedy (Attorney General v. Prince Ernest Augustus of Hanover, D
(1957) AC 436 at 461. Instances of general words in a statute being
so constrained by their context are numerous. In particular as Mc
Hugh JA pointed out in Isherwood v. Butler Pollnow Pty fol., (1986)
6 NSWLR 363 at 388, if the apparently plain words of a provision

- .... are read in the light of the mischief which the statute was designed
to overcome and of the objects of the legislation, they may wear a
very different appearance. Further, inconvenience or improbability of
E

result may assist the court in preferring to the literal meaning an
alternative construction which, by the steps identified above, is
reasonably open and more closely conforms to the legislative intent
(Cooper Brookes(Wollomgong) Pty Ltd. v. Federal Commissioner of F
Taxation, (1981) 147 CLR 297 at 320-321)."
+ Another decision of the Australian High Court in the case of Newcastle
City Council v. GIO General limited, (1998) 72 ALJR 97 (Aust.) may also
be no_ticed at this juncture wherein the observations and elucidation of
G
cannons of construction and interpretation by Brennan, CJ seem to be very
apposite and we do record our unhesitant concurrence therewith.

The observations, however, runs as below:

"Moreover, as the extrinsic material reveals, s.40(3) was intended to
be remedial. As far as practicable, s.40(1) and (3) should be construed H
674 SUPREME COURT REPORTS [2001] 2 S.C.R.
A to promote the objects of the Act. Nevertheless, as I pointed out in
Kingston v. Keprose Pty l.Jd, (1987) 11 NSWLR 404 at 423, in
applying a purposive construction, "the function of the court remains
one of construction and not legislation." When the express words of
a legislative provision are reasonably capable of only one construc-
tion and neither the purpose of the provision nor any other provision
B
in the legislation throws doubt on that construction, a court cannot
ignore it and substitute a different construction because it furthers the
objects of the legislation."

......................................
c The cin::urnstances in which recourse can legitimately be had to the
extrinsic material

Mr. Sackar relied on s 15Ab of the Acts Interpretation Act to urge
this Court to examine and take into account the extrinsic material. )"
D Section 15AB is entitled "Use of extrinsic material in the interpreta-
tion of an Act" .and relevantly provides:

"(!)Subject to sub-section (3), in the interpretation of a provision of
an Act, if any material not forming part of the Act is capable of

E
assisting in the ascertainment of the meaning of the provision,
consideration may be given to that material: ,. -
(a) to confirm that the meaning of the provision is the ordinary
meaning conveyed by the text of the provision taking into
account its context in the Act and the purpose or object
F underlying the Act; or

(b) to determine the meaning of the provision when:

(i) the provision is ambiguous or obscure; or

G (ii) the ordinary meaning conveyed by the text of the provision
taking into account its context in the Act and the purpose or
object underlying the Act leads to a result that is manifestly
absurd or is unreasonable.
~
(2) Without limiting the generality of sub-section(!), the material
H that may be considered in accordance with thrrt sub-section in
GURUDEVDATTA VKSSS MARYADIT v. STATE [BANERJEE, J.] 675
the interpretation of a provision of an Act inclndes; A

(b) any relevant report of a Royal Commission, Law Reform
Commission, committee of inquiry or other similar body that
was laid before either House of the Parliament before the time
B
when the provision was enacted; ............................ .

(e) any explanatory memorandum relating to the Bill containing
the provision ........ "
c
On a perusal of the aforesaid, be it noted that in the event the language
is clear, categorical and unequivocal, no outside aid is required or is permis-
sible for interpreting the proviso to the Section by the Amending Act of 2000.
In the contextual facts and in the view we have taken above, we regret our
inability to accede to or record our concurrence with the submissions of Mr.
Bobde.
D

Further we wish to clarify that it is a cardinal principle of interpretation
of statute that the words of a statute must be understood in their natural,
ordinary or popular sense and construed according to their grammatical
meaning, unless such construction leads to some absurdity or unless there is E
something in the context or in the object of the statute to suggest to the
contrary. The golden rule is that the words of a statute must prima facie be
given their ordinary meaning. It is yet another rule of construction that when
the words of the statute are clear, plain and unambiguous, then the Courts
are bound to give effect to that meaning, irrespective of the consequences.
F
It is said that the words themselves best declare the intention of the law giver.
The Courts have adhered to the principle that efforts should be made to give
meaning to each and every word used by the legislature and it is not a sound
principle of construction to brush aside words in a statnte as being inapposite
surpluses, if they can have a proper application in circumstances conceivable
within the contemplation of the statute. Bearing in mind, the aforesaid G
principle of construction, if the expression "any new member society"
occurring in the proviso to sub- section (3) of Section 27 is construed, it
conveys the only meaning that it refers to the societies to be formed hereafter
and not of those societies which have already become member societies of
the federal society. Therefore, the requirement of the completion of the period H
676 SUPREME COURT REPORTS (2001] 2 S.C.R.
A of three years from the date of its investing any part of its fund in the shares
of such federal society would apply only to those societies which became
member society of the federal society after 20th Augus~ 2000. In this view
of the matter, the impugned judgment of the High Court does not suffer from
any infirmity. Even if there remained any doubt in the matter of interpreting
the proviso, the Ordinance that has been promulgated on 27th February,
B
2001, called the Maharashtra Ordinance No. X of 2001, after the first proviso
to sub-section (3), a second proviso bad been inserted, has removed any doubt
or controversy in as much as it has been indicated therein that the first proviso
will not apply to the member society which has invested any part of its
fund in the share of the federal society before the commencement of the
c Maharashtra Co-operative Societies (Amendment) Act, 2000 dated 20th
August, 2000. The aforesaid Ordinance also has been given a retrospective
effect, to be effective from 23rd August, 2000. The Ordinance having
been held to be valid by us as stated above, the so-called prohibition
contained in the first proviso to sub-section (3) of Section 27 will not apply
to all those societies which have already become members of the federal
D
society prior to 23rd August, 2000.

On the wake of the aforesaid the Appeal thus fails. Each party,
however, to pay and bear its own costs.

E
A.Q. Appeal dismissed.
-
+