Supreme Court of India
RE: SPECIAL REFERENCE N0.1 OF 2012versus--
- Citation
- 2012 INSC 428
- Decided
- 27 September 2012
- Disposal
- Reference answered
- Bench
- S H KAPADIA
Holding
Auctions are not the only permissible method for disposal of all natural resources across all sectors and in all circumstances; the State may adopt other methods provided they are fair, reasonable, non-discriminatory, transparent, and in public interest, and auction is not a constitutional mandate under Article 14.
Summary
The President of India made a reference under Article 143(1) of the Constitution seeking the Supreme Court's opinion on whether auction is the only permissible method for disposal of all natural resources, following the Court's judgment in the 2G case which had quashed spectrum licenses and directed auction. The Court held that the reference was maintainable despite the earlier decision, as it sought clarification on the ratio of the 2G case, which was limited to spectrum and did not lay down a universal constitutional mandate for auction. The Court examined Article 14 and Article 39(b) and concluded that auction is not a constitutional requirement for all natural resources; the State may adopt other methods as long as they are fair, non-arbitrary, transparent, and in public interest. The Court emphasized that policy decisions regarding disposal of natural resources are executive prerogatives, subject to judicial review only for arbitrariness or violation of constitutional provisions. The Court answered the first five questions in the negative, holding that auction is not the only permissible method, and declined to answer the remaining questions as they pertained to spectrum, which the Government had accepted to implement by auction. The concurring opinion further stressed that when natural resources are alienated for private commercial exploitation, maximization of revenue is necessary to satisfy Article 14 and Article 39(b).
Issues considered
- Whether the only permissible method for disposal of all natural resources across all sectors and in all circumstances is by the conduct of auctions?
- Whether a broad proposition that only auctions can be resorted to for disposal of natural resources runs contrary to several judgments of the Supreme Court?
- Whether the enunciation of such a broad principle amounts to formulation of policy and unsettles policy decisions taken by successive governments?
- What is the permissible scope for interference by courts with policy making including methods for disposal of natural resources?
- Whether, if a policy is held flawed, the court is obliged to take into account investments made under that policy?
- Whether the judgment in the 2G case requires retrospective effect to unsettle all licences issued prior to 2008?
- Whether the Government can take action to alter licence terms to ensure a level playing field?
- Whether the Government can make provisions for allotment of spectrum at auction discovered prices, impose ceilings, and allocate spectrum in bands with inadequate competition?
- What is the effect of the judgment on 3G spectrum acquired by entities whose licences were quashed?
Legislation cited
- Constitution of Indias. 12, s. 137, s. 14, s. 141, s. 143(1), s. 19, s. 194(3), s. 21, s. 22, s. 298, s. 299, s. 37, s. 39(b)
- Inter-State Water Disputes Act, 1956s. 5(1)
- Mines and Minerals (Development and Regulation) Act, 1957s. 10, s. 11, s. 11A
- Telecom Regulatory Authority of India Act, 1997
Subjects
Constitutional LawNatural ResourcesAuctionArticle 14Article 143Public Trust DoctrineJudicial ReviewPolicy2G SpectrumEqualityCommon GoodDirective PrinciplesPresidential Reference
Judgment
[2012] 9 S.C.R. 311
RE: SPECIAL REFERENCE N0.1 OF 2012 A
[Under Article 143(1) of the Constitution of India]
SEPTEMBER 27, 2012
[S.H. KAPADIA, CJI, D.K. JAIN, JAGDISH SINGH
KHEHAR, DIPAK MISRA AND RANJAN GOGOi, JJ.) B
CONSTITUTION OF /NOIA, 1950:
Art 143(1) - Power of President to consult Supreme Court
- Scope of - It is not necessary that the question on which the c
opinion of Supreme Court is sought must have actually arisen
- The President can make a reference even at an anterior
stage, namely, at the stage when the President is satisfied that
the question is likely to arise - The satisfaction whether the
question meets pre-requisites of Art. 143(1) is essentially a
0
matter for the President to decide - Upon receipt of a reference
under Art. 143(1), the only discretion Supreme Court has is
either to answer the reference or respectfully decline to send
a report to the President - In the instant Reference, Question
no. 1 involves interpretation of a constitutional principle E
inherent under Art. 14 of the Constitution and it is of great
public importance as it deals with allocation/alienation!
disposal! distribution of natural resources.
Art. 137 and 143(1) - Review and Reference - Difference
between - Explained - Held: Merely because a review of the F
judgment of Supreme Court in a case had been filed and
withdrawn and in the recital of Reference, the narration pertains
to the said case, the same would not be an embargo or
impediment for exercise of discretion to answer the Reference.
G
Art. 143 (1) - Presidential Reference - Notice - Practice
and procedure.
Art. 143(1) - Presidential Reference subsequent to
decision of Supreme Court in "2G Case" - Maintainability of
311 H
L
312 SUPREME COURT REPORTS [2012] 9 S.C.R.
A - Held: The Reference is maintainable, notwithstanding its
effect on the ratio of 2G Case, as long as the decision in that
case qua tis inter partes is left unaffected - By the Reference,
Court's opinion is sought on the limited point of permissibility
of methods other than auc.tion for alienation of natural
B resources, other than spectrum - It has been stated on behalf
of Government of India that it is not questioning the
correctness of directions in 2G Case, in so far as a/location
of spectrum is concerned and, in fact, Government is in the
process of implementing the same, in letter and spirit - As long
c as the decision with respect to allocation of spectrum licenses
is untouched, the Court is within its jurisdiction to evaluate and
clarify ratio of the judgment in 2G Case.
Art. 141 - Law declared by Supreme Court - Held: The
'law declared' in a judgment, which is binding upon courts, is
D the ratio decidendi of the judgment - It is the principle culled
out on the reading of a judgment as a whole in the light of the
questions raised upon which the case is decided - ln"2G case"
the Court was not considering the case of auction in general,
but was specifically evaluating the validity of the methods
E adopted in the distribution of spectrum during the relevant
period - The recommendation of auction for alienation of
natural resources was never intended to be taken as an
absolute or blanket statement applicable across all natural
resources - The choice of the word 'perhaps' suggests that the
F Court considered situations requiring a method other than
auction as conct;ivable and desirable - Observations in 2G
Case could not apply beyond the specific case of spectrum,
which according to the law declared in 2G Case, is to be
alienated only by auction and no other method - Precedents.
G
Art. 14 - Disposal of natural resources by State - Auctions
- Held: Auctions are not the only permissible method for
disposal of all natural resources across all sectors and in qi/
circumstances - Auction, as a method of disposal of natural
resources cannot be declared a constitutional mandate under
H
RE: SPECIAL REFERENCE N0.1 OF 2012 313
Art.14 - Auction despite being a more preferable method of A
alienation/allotment of natural resources, cannot be held to
be a constitutional requirement or limitarion for alienation of
all natural resources and, therefore, every method other than
auction cannot be struck down as u/tra-vires the Constitution
- Market price, in economics, is an index of the value that a B
market prescribes to a good - However, this valuation is a
function of several dynamic variables; it is a science and not
a law - Auction is just one of the several price discovery
mechanisms - Since multiple variables are involved in such
valuations, auction or any other form of competitive bidding, c
cannot constitute even an economic mandate, much Jess a
constitutional mandate - Therefore, auction, as an economic
choice of disposal of natural resources, is not a constitutional
mandate - Alienation of natural resources is a policy decision,
and the means adopted for the same are thus, executive
0
prerogatives - However, when such a policy decision is not
backed by a social or welfare purpose, and precious and
scarce natural resources are alienated to private
entrepreneurs for commercial pursuits of profit maximizing,
adoption of means other than those that are competitive and E
maximize revenue may be arbitrary and face the wrath of Art.
14 of the Constitution.
Art. 14 read with Art. 299 - Government contracts - Held:
A State action has to be tested on the touchstone of Art.14 -
The action has to be fair, reasonable, non-discriminatory, F
transparent, non-capricious, unbiased, without favouritism or
nepotism, in pursuit of promotion of healthy competition and
equitable treatment - It should conform to the norms which are
rational, informed with reasons and guided by public interest,
etc. - All these principles are inherent in the fundamental G
conception of Art. 14 - This is the mandate of Art. 14.
Arts. 14 and. 39(b) - Equality in allocation of natural
resources and "common good" factor - Held: Auctions may
be the best way of maximizing revenue but revenue
H
314 SUPREME COURT REPORTS [2012) 9 S.C.R.
A maximization may not always be the best way to subsetVe
public good - "Common good" is the sole guiding factor and
a norm under Art. 39(b) for distribution of natural resources -
Where revenue maximization is the object of a policy, being
considered qua that resource at that point of time to be the
B best way to subsetVe the common good, auction would be· one
of.the preferable methods, though not the only method -
Where revenue maximization is not the object of a policy of
distribution, the question of auction would not arise - Revenue
considerations may give way to developmental considerations
c - Public interest litigation - Judicial notice.
Arts. 298 and 299 read with Art. 14 - Power of State to
trade and execute contracts - Discussed.
ADMINISTRATIVE LAW:
D
State Policy - Judicial review of - Held: Court cannot
conduct a comparative study of various methods of
distribution of natural resources and suggest the most
efficacious mode - The methodology pertaining to disposal
E of natural resources is clearly an economic policy - It cannot,
and shall not, be the endeavour of the Court to evaluate the
efficacy of auction vis-a-vis other methods of disposal of
natural resources - When questioned, courts are entitled to
analyse legal validity of different means of distribution and
give a constitutional answer as to which methods are ultra
F
vires and intra vires the provisions of the Constitution - If a
policy or law is patently unfair to the extent that it falls foul of
the fairness requirement of Art. 14, Court would not hesitate
in striking it down - Legality and constitutionality of State
Policy and implementation thereof - Discussed - Constitution
G of India, 1950 - Art. 14.
After the decision of the Supreme Court in the case
of Centre for Public Interest Litigation & Ors.1,( 2G Case) the
instant Reference was made by the President of India, in
H exercise of powers under Clause (1) of Art. 143 of the
RE: SPECIAL REFERENCE N0.1 OF 2012 315
Constitution of India, for consideration and report of the A
Supreme Court on the following questions:
Q.1 "Whether the only permissible method for
disposal of all natural resources across all
sectors and in all circumstances is by the 8
conduct of auctions?
Q.2 Whether a broad proposition of law that only
the route of auctions can be resorted to for
disposal of natural resources does not run
contrary to several judgments of the Supreme C
Court including those of Larger Benches?
Q.3 Whether the enunciation of a broad principle,
even though expressed as a matter of
constitutional law, does not really amount to 0
formulation of a policy and has the effect of
unsettling policy decisions formulated and
approaches taken by various successive
governments over the years for valid
considerations, including lack of public E
resources and the need to resort to innovative
and different approaches for the development
of various sectors of the economy?
Q.4 What is the permissible scope for interference
by courts with policy making by the F
Government including methods for disposal of
natural resources?
Q.5 Whether, if the court holds, within the
permissible scope of judicial review, that a G
policy is flawed, is the court not obliged to
take into account investments made under the
said policy including investments made by
foreign investors under multilateral/bilateral
agreements?
H
316 SUPREME COURT REPORTS [2012) 9 S.C.R.
A Q.6 If the answers to the aforesaid questions lead
to an affirmation of the judgment dated
02.02.2012 then the following questions may
arise, viz.
B (i) whether the judgment is required to
be given retrospective effect so as to
unsettle all licences issued and 2G
spectrum (800, 900, and 1800 MHz
bands) allocated in and after 1994 and
c prior to 10.01.2008?
(ii) whether the allocation of 2G
spectrum in all circumstances and in all
specific cases for different policy
considerations would nevertheless have
D to be undone?
And specifically
(iii) Whether the telecom licences granted in
1994 would be affected?
E
(iv) Whether the Telecom licences granted
by way of basic licences in 2001 and
licences granted between the period
2003-2007 would be affected?
F
(v) Whether it is open to the Government of
India to take any action to alter the terms
of any licence to ensure a level playing
field among all existing licensees?
G (vi) Whether dual technology licences
granted in 2007 and 2008 would be
affected?
(vii) Whether it is necessary or obligatory for
H the Government of India to withdraw the
RE: SPECIAL REFERENCE N0.1 OF 2012 317
Spectrum allocated to all existing A
licensees or to charge for the same with
retrospective effect and if so on what
basis and from what date?
Q.7 Whether, while taking action for conduct of
8
auction in accordance with the orders of the
Supreme Court, it would remain permissible
for the Government to:
(i) Make provision for allotment of Spectrum
from time to time at the auction C
discovered price and in accordance with
laid down criteria during the period of
validity of the auction determined price?
(ii) Impose a ceiling on the acquisition of 0
Spectrum with the aim of avoiding the
emergence of dominance in the market
by any licensee/applicant duly taking
into consideration TRAI
recommendations in this regard?
E
(iii) Make provision for allocation of
Spectrum at auction related prices in
accordance with laid down criteria in
bands where there may be inadequate
or no competition (for e.g. there is F
expected to be a low level of competition
for CDMA in 800 MHz band and TRAI has
recommended an equivalence ratio of
1.5 or 1.3X1.5 for 800 MHz and 900 MHz
bands depending upon the quantum of G
spectrum held by the licensee that can
be applied to auction price in 1800 MHz
band in the absence of a specific price
for these bands)?
H
318 SUPREME COURT REPORTS [2012] 9 S.C.R.
A Q.8 What is the effect of the judgment on 3G
Spectrum acquired by entities by auction
whose licences have been quashed b~i the
said judgment?"
8 Notice was issued to the Attorney General for India,
and after hearing him, it was directed that notice be
issued to all the States through their Standing Counsel,
the petitioners in 2G Case, the Federation of Indian
Chamber of Commerce and lndt•st!"y, and the
C Confederation of Indian Industry.
Answering the reference in part, the Court
HELD: Per D.K. Jain, J. (For CJI, himself, Dipak Misra
and Ranjan Gogoi, JJ.)
D MAINTAINABILITY OF THE REFERENCE:
1.1 Art. 143 of the Constitution of India is couched
in broad terms; and from its language, it is plain that it is
not necessary that the question on which the opinion of
E the Supreme Court is sought must have actually arisen.
The President can make a reference under the said
Article even at an anterior stage, namely, at the stage
when the President is satisfied that the question is likely
to arise. The satisfaction whether the question meets the
F pre-requisites of Art. 143(1) is essentially a matter for the
President to decide. Upon receipt of a reference under
Art. 143(1), the function of this Court is to consider the
reference, the question(s) on which the President has
made the reference, on the facts as stated in the
G reference and report to the President its opinion thereon.
Nevertheless, the usage of the word "may" in the latter
part of Art. 143(1) implies that this Court is not bound to
render advisory opinion in every reference and may
refuse to express its opinion for strong, compelling and
H good reasons. [Para 23-24) (373-E-F, G-H; 374-B-C]
RE: SPECIAL REFERENCE N0.1 OF 2012 319
Special Reference No.1 of 1964("Keshav Singh'~ [1965) A
1 S.C.R. 413; and Re: The Kera/a Education Bill, 1957 In
Reference under Article 143(1) Of the Constitution of India
[1959) S.C.R. 995 - relied on.
In re: A/location of Lands and Buildings Situate in a Chief
Commissioner's Province and in the matter of Reference by
8
the Governor-General under S. 213; Government of India Act,
1935 A.l.R. (30) 1943 FC 13; and Dr. M. Ismail Faruqui &
=
Ors. vs. Union of India & Ors. 1994 (5) Suppl. SCR 1 (1994)
6 sec 360 - referred to.
c
1.3 As far as the allegation of mala fide is concerned,
it is trite that this Court is neither required to go into the
truth or otherwise of the facts of the recitals nor can it go
into the question of bona tides or otherwise of the
authority making a reference. The constitutional power to o
seek opinion of this Court rests with the President. The
only discretion this Court has is either to answer the
reference or respectfully decline to send a report to the
President. Therefore, the challenge on the ground of mala
fide, as raised, is unsustainable. [Para 34] (379-A-C] E
Re: Presidential Po// 1975 (1) SCR 504 =(1974) 2 SCC
33 - referred to.
1.4 From the judgment in The Special Courts Bill,
1978, three broad principles emerge: (i) a reference F
should not be vague, general and Undefined, (ii) this Court
can go through the written briefs and arguments to
narrow down the legal controversies, and (iii) when the
question becomes unspecific and incomprehensible, the
risk of returning the reference unanswered arises. (para G
30) [377 -D-E]
Re: The Special Courts Bill, 1978 1979 (2) SCR 476 =
(1979) 1 SCC 380; Special Reference No.1 of 1964
("Keshav Singh'?,(1965) 1 S.C.R. 413 - referred to
H
320 SUPREME COURT REPORTS [2012] 9 S.C.R.
A 1.5 There is no denying the fact that in the entire
Reference the word 'doubt' has not been used. Nor does
Art. 143(1) use the term 'doubt'. No specific format has
been provided in any of the Schedules of the Constitution
as to how a reference is to be drawn. The use of the word
B 'doubt' in a reference is also not a constitutional
command or mandate. Thus, it cannot be said that use
of the word 'doubt' is a necessary condition for a
reference to be maintainable under Art. 143(1). That apart,
Question No.1 of the instant Reference is neither vague
c nor general nor unspecific, but is in the realm of
comprehension which is relatable to a question of law. It
expresses a 'doubt' and seeks the opinion of the Court
on that question, besides others. [Para 27 and 32) [374-
G-H; 375-A; 378-B]
D P. Ramanatha Aiyar's, The Major Law Lexicon, 4th Edn.;
Concise Oxford Dictionary (Tenth Edn.); and Black's Law
Dictionary-referred to.
1.6 In so far as the impact of filing and withdrawal of
E the review application by the Union of India, against the
decision in the 2G Case* on the maintainability of the
instant Reference is concerned, there is a dff~erence
between the jurisdiction exercised by this Court in a
review and the discretion exercised in answering a
F reference under Art. 143(1) of the Constitution. A review
is basically guided by the well-settled principles for
review of a judgment and a decree or order passed inter
se parties. But, when an opinion of this Court is sought
by the Executive taking recourse to a constitutional
power, the same stands on a different footing altogether.
G A review is lis specific and the rights of the parties to the
controversy are dealt with therein; whereas a reference
is answered keeping in view the terms of the reference
and scrutinising whether the same satisfies the
requirements inherent in thetanguage employed under
H Art. 143(1) of the Constitution. Therefore, merely because
RE: SPECIAL REFERENCE N0.1 OF 2012 321
a review had been filed and withdrawn and in the recital A
the narration pertains to the said case, the same would
not be an embargo or impediment for exercise of
discretion to answer the Reference. [Para 33] [378-C-H]
*Centre for Public Interest Litigation & Ors. vs. Union of
8
India & Ors. (2012) 3 SCR 147=(2012) 3 SCC 1 - referred
to.
1. 7 As regards the objection to the maintainability of
the Reference that it is an indirect endeavour to unsettle
and overturn the verdict in the 2G Case, at the outset it C
may be noted that it has been stated on behalf of the
Government of India that it is not questioning the
correctness of the directions in the 2G Case, in so far as
the allocation of spectrum is concerned and, in fact, the
Government is in the process of implementing the same, D
in letter and spirit. [Para 35- 36] (379-C-D; E-F]
1.8 As regards reconsideration of a decision, there are
two limitations - one jurisdictional and the other self-
imposed. The first limitation is that a decision of this Court
can be reviewed only under Art. 137 or a Curative Petition E
and in no other way. Once a lis between parties is
decided, the operative decree can only be opened in
review. Overruling the judgment - as a precedent - does
not reopen the decree. The second limitation, a self-
imposed rule of judicial discipline, was that overruling the F
opinion of the Court on a legal issue does not constitute
sitting in appeal, but is done only in exceptional
circumstances, such as when the earlier decision is per
incuriam or is delivered in the absence of relevant or
material facts or if it is manifestly wrong and capable of G
causing public mischief. In fact, the overruling of a
. principle of law is not an outcome of appellate jurisdiction
but a consequence of its inherent power. This inherent
power can be exercised as long as a previous decree vis-
a-vis lis inter partes is not affected. (Para 45-47] (386-D- H
t
322 SUPREME COURT REPORTS [2012) 9 S.C.R.
A H; 387-A-C]
Bengal Immunity Company Ltd. v. State of Bihar (1955)
2 SCR 603; In the matter of: Cauvery Water Disputes
Tribunal 1991 (2) Suppl. SCR 497 =
1993 Supp (1) SCC
96 (II) ("Cauvery-11"); State of Tamil Nadu vs. State of
8
Kamataka & Ors. 1991 (2) SCR 501 = 1991 Suppl (1) SCC
240 ("Cauvery 1'1 & Rupa Ashok Hurra vs. Ashok Hurra &
=
Anr. 2002 (2) SCR 1006 (2002) 4 SCC 388 - referred to
1.9 From the decisions of this Court, it is
C demonstrable that while entertaining the reference under
Art. 143(1), this Court can look into an earlier decision.
For the purpose of validity of a reference, suffice it to say,
dwelling upon an earlier judgment is permissible. That
apart, one cannot be oblivious of the fact that the scope
o of limited judicial review, in the Second Judges Case,
which otherwise is quite restricted, was slightly
expanded in the Court's opinion to th_e Presidential
reference. [Para 58] [395-D-E]
In re: The Special Courts Bill, 1978 1979 (2) SCR 476
E =
(1979) 1 SCC 380, In Re: The Delhi Laws Act, 1912, the
Ajmer-Merwara (Extension of Laws) Act, 1947 And The Part
C States (Laws) Act, 1950 [1951] S.C.R. 747, Jatindra Nath
Gupta vs. The Province of Bihar & Ors. [1949-50] F.C.R. 595,
Special Reference No. 1 of 1964 [1965] 1 S.C.R.
F 41 ("Keshav Singh"), Gunupati Keshavram Reddy vs.
Nafisul Hasan & the State of U.P. AIR 1954 SC 636, Pandit
M. S. M. Sharma vs. Shri Sri Krishna Sinha & Ors. [1959]
Supp. 1 S.C.R. 806 ("Sharma"), Supreme Court Advocates-
on-Record Association and Ors. vs. Union of India (1993) 4
G SCC 441, Special Reference No. 1 of 1998 Re. 1998 (2)
Suppl. SCR 400 = (1998) 7 SCC 739 ('Second Judges
Case'1, & Dr. M. Ismail Faruqui & Ors. vs. Union of India &
Ors. (1994) 6 SCC 360 - referred to.
H 1.10 From the analysis of the decisions of this Court,
RE: SPECIAL REFERENCE N0.1 OF 2012 323
it is quite vivid that this Court would respectfully decline A
to answer a reference if it is improper, inadvisable and
undesirable; or the questions formulated have purely
socio-economic or political reasons, which have no
relation whatsoever with any of the provisions of the
Constitution or otherwise are of no constitutional B
significance; or are incapable of being answered; or
would not subserve any purpose; or there is authoritative
pronouncement of this Court which has already decided
the question referred. [Para 60] [395-H; 396-A-B]
1.11 In the case at hand, the Reference states that in C
the current circumstances, certain questions of law with
far reaching national and international implications have
arisen, including in relation to conduct of the auction and
the regulation of the telecommunications industry in
accordance with the judgment (2G Case) that may affect D
the flow of FOi in the telecom industry and otherwise in
other sectors into this country. The Reference also states
that the questions of law that have arisen are of great
public importance and are of far reaching consequences
for the development of the country and, therefore, it is E
thought expedient to obtain the opinion of this Court.
Question No. 1 of the Reference involves interpretation
of a constitutional principle inherent under Art. 14 of the
Constitution and it ls of -great public importance as it
deals with allocation/alienation/disposal/ distribution of F
natural resources. [Para 28 and 61] [375-H; 376-A-C]
1.12 This Court is, therefore, of the view that as long
as the decision with respect to the allocation of spectrum
licenses is untouched, this Court is within its jurisdiction
to evaluate and clarify the ratio of the judgment in the 2G G
Case. Therefore, the fact that the Reference may require
the Court to say something different to what has been
enunciated in the 2G Case as a proposition of law, cannot
strike at the root of the maintainability of the Reference.
Consequently, this Court holds that the Reference is H
324 SUPREME COURT REPORTS [2012] 9 S.C.R.
A maintainable, notwithstanding its effect on the ratio of the
2G Case, as long as the decision in that case qua lis inter
partes is left unaffected. [Para 62] [396-E-G]
ON MERITS
B 2.1 Art. 141 of the Constitution lays down that the
'law declared' by the Supreme Court is binding upon all
the courts within the territory of India. The 'law declared'
has to be construed as a principle of law that emanates
from a judgment, or an interpretation of a law or judgment
C by the Supreme Court, upon which, the case is decided.
Therefore, the 'law declared' is the principle culled out on
the reading of a judgment as a whole in the light of the
questions raised upon which the case is decided. Thus,
the 'law declared' in a judgment, which is binding upon
D courts, is the ratio decidendi of the judgment. It is the
essence of a decision and the principle upon which, the
case is decided, which has to be ascertained in relation
to the subject-matter of the decision. [Para 66] [397-E-H;
398-A]
E
Fida Hussain & Ors. Vs. Moradabad Development
Authority & Anr. 2011 (9) SCR 290 = (2011) 12 SCC 615;
Ambica Quarry Works Vs. State of Gujarat & Ors. 1987 (1)
SCR 562 = (1987) 1 SCC 213 and Commissioner of Income
Tax Vs. Sun Engineering Works (P) Ltd. 1992 (1) Suppl. SCR
F 732 = 1992 (4) SCC 363; Islamic Academy of Education &
Anr. Vs. State of Karnataka & Ors. (2003) 6 SCC 697 - relied
on
Union of India Vs. Amrit Lal Manchanda & Anr. (2004) 3
G SCC 75; State of Orissa & Ors. Vs. Md. /lliyas 2005 (5) Suppl.
SCR 395 = 2006 (1) SCC 275 - referred to.
''The Nature of Judicial Process" by Justice Benjamin
Cardozo - referred to.
H 2.2 On a reading paragraphs 85 and 89 of the
RE: SPECIAL REFERENCE N0.1 OF 2012 325
judgment in 2G Case, it can be noticed that while referring A
to the concept of 'public trust doctrine', emphasis was
laid on the doctrine of equality, larger public good,
adoption of a transparent and fair method, opportunity of
competition; and avoidance of any occasion to scuttle
the claim of similarly situated applicants. While dealing B
with alienation of natural resources like spectrum, it was
stated that it is the duty of the State to ensure that a non-
discriminatory method is adopted for distribution and
alienation which would necessarily result in the
protection of national/public interest. Paragraphs 94 and c
95 suggest that the Court was not considering the case
of auction in general, but specifically evaluating the
validity of those methods adopted in the distribution of
spectrum from September 2007 to March 2008. It is also
pertinent to note that reference to auction is made in the
D
subsequent paragraph (96) with the rider 'perhaps'. It has
been observed that "a duly publicized auction conducted
fairly and impartially is perhaps the best method for
discharging this burden." It is true that a judgment is not
to be read as a statute, but at the same time, when it is
argued with vehemence that the judgment lays down E
auction as a constitutional principle, the word "perhaps"
gains significance. This suggests that the
recommendation of auction for alienation of natural
resources was never intended to be taken as an absolute
or blanket statement applicable across all natural F
resources, but simply a conclusion made at first blush
over the attractiveness of a method like auction in
disposal of natural resources. The choice of the word
'perhaps' suggests that the Court considered situations
requiring a method other than auction as conceivable G
and desirable. Further, the final conclusions summarized
in paragraph 102 of the judgment (SCC) make no mention
about auction being the only permissible and intra vires
method for disposal of natural resources; the findings are
limited to the case of spectrum. In case the Court had H
326 SUPREME COURT REPORTS [2012] 9 S.C.R.
A actually enunciated, as a proposition of law, that auction
is the only permissible method or mode for alienation/
allotment of natural resources, the same would have
found a mention in the summary at the end of the
judgment. [Para 75,76,78 and 79] [402-G; 403-A-B; 404-G-
B H; 405-A-E]
M.C. Mehta Vs. Kamal Nath & Ors. 1996 (10) Suppl.
SCR 12 =1997 (1) SCC 388; Jamshed Hormusji Wadia Vs.
Board of Trustees, Port of Mumbai & Anr. 2004 (1) SCR 483
C = 2004 (3) SCC 214; Intellectuals Forum, Tirupathi Vs. State
of A.P. & Ors. 2006 (2) SCR 419 = 2006 (3) sec 549;
Fomento Resorts And Hotels Limited & Anr. Vs. Mingue/
Martins & Ors. 2009 (3) SCR 1 = (2009) 3 SCC 571 and
Reliance Natural Resources Limited Vs. Reliance Industries
Limited 2010 (5) SCR 704 = 2010 (7) SCC 1; Akhil Bhartiya
D Upbhokta Congress vs. State of Madhya Pradesh & Ors.
2011 (5) SCR 77 = (2011) 5 SCC 29, Sachidanand Pandey
& Anr. vs. State of West Bengal & Ors. 1987 (2) SCR 223 =
(1987) 2 sec 295 - referred to.
E The Illinois Central Railroad Co. Vs. The People of the
State of Illinois 36 LED 1018: 146 U.S. 387 (1892) - referred
to
2.3 The 2G Case does not even consider other laws
and judgments that prescribe methods, other than
F auction, for dispensation of natural resources; something
that it would have done, in case, it intended to make an
assertion as wide as applying auction to all natural
resources. Therefore, the observations in Paras 94 to 96
could not apply beyond the specific case of spectrum,
G which according to the law declared in the 2G Case, is
to be alienated only by auction and no other method.
Thus, 2 G case does not deal with modes of allocation
for natural resources, other than spectrum. [Para 80-81]
[405-H; 406-A-C]
H
RE: SPECIAL REFERENCE N0.1 OF 2012 327
3.1 By the Reference this Court's opinion is sought A
on the limited point of permissibility of methods other
than auction for alienation of natural resources, other
than spectrum. [Para 82] [406-D-E]
3.2 As regards the objection pertaining to the
8
classification of resources made in the 2G Case, suffice
it to say that the judgment itself does not carve out any
special case for scarce natural resources only meant for
commercial exploitation. However, this Court has the
jurisdiction to classify the subject matter of a reference, C
if a genuine case for it exists. [Para 83] [406-G-H; 407-A-
B-D]
3.3 In the 2G Case, two concepts namely, "public trust
doctrine" and "trusteeship" have been adverted to. This
Court in M.C. Mehta vs Kamal Nath, as explained in D
Intellectuals Forum, has held that when the affirmative
duties are set out from a nugatory angle, the doctrine
does not exactly prohibit the alienation of property held
as a public trust, but mandates a high degree of judicial
scrutiny. [Para 85 and 87] [407-G-H; 409-E; 410-8] E
M.C. Mehta vs. Kamal Nath & Ors. 1996 (10) Suppl.
SCR 12 = (1997) 1 SCC 388, Intellectuals Forum, Tirupathi
vs. State of A.P. & Ors. (2006) 3 SCC 549-referred to
The Illinois Central Railroad Co. Vs. The People of the F
State..JJfJJ/inois 36 LED 1018: 146 U.S. 387 (1892) - referred
to
3.4 The public trust doctrine is a specific doctrine
with a particular domain and has to be applied carefully. G
[Para 90] [411-C]
"The Public Trust Doctrine in Natural Resource Law:
Effective Judicial Intervention" by Joseph. L. Sax;
and Changing Conceptions of Property and
Sovereignty in Natural Resources: Questioning the H
L
328 SUPREME COURT REPORTS [2012] 9 S.C.R.
A Public Trust Doctrine" by Richargd J. Lazarus, -
referred to
3.5 The legislature and the Executive are answerable
to the Constitution and it is there where the judiciary, the
8 guardian of the Constitution, must find the contours to the
powers of disposal of natural resources, especially Art.
14 and Art. 39(b). [Para 92] (413-A-B]
Municipal Corporation of Delhi Vs. Bir/a Cotton, Spinning
and Weaving Mills, Delhi & Anr. [1968] 3 SCR 251 - relied
C on.
Raja Ram Pal Vs. Hon'b/e Speaker, Lok Sabha & Ors.
(2007) 3 sec 184- referred to.
·In Re: Delhi Laws Act, 1912- referred to
D
MANDATE OF Art. 14:
4.1 The underlying object of Art. 14 of the Constitution
of India is to secure to all persons, citizens or non-
E citizens, the equality of status and opportunity referred
to in the preamble to Constitution. The right to equality
before law is secured from all legislative and executive
tyranny by way of discrimination since the language of
Art.14 uses the word "State" which as per Art.12, includes
F the executive organ. Besides, Art.14 is expressed in
absolute terms and its effect is not curtailed by
restrictions like those imposed on Art.19(1) by Arts.19(2)-
(6). However, notwithstanding the absence of such
restrictions, certain tests, e.g. classification test,
'arbitrariness' doctrine have been devised through
G judicial decisions to test if Art.14 has been violated or not.
The expressions 'arbitrariness' and 'unreasonableness'
have been used interchangeably and in fact, one has
been defined in terms of the other. [Para 94 and 101] [413-
D-F; 414-A; 418-B-C]
H
RE: SPECIAL REFERENCE N0.1 OF 2012 329
Basheshar Nath Vs. The Commissioner of Income Tax, A
Delhi & Rajasthan & Anr. 1959 Supp (1) SCR 528; Budhan
Chaudhry & Ors. Vs. State of Bihar AIR 1955 SC 191; Shri
Ram Krishna Dalmiya Vs. Shri Justice S.R. Tendolkar and
Ors. [1959) 1 SCR 279; E.P. Royappa Vs. State of Tamil
Nadu & Anr. 1974 (2) SCR 348 = (1974) 4 SCC 3; Maneka B
Gandhi vs. Union of India & Anr. 1978 (2) SCR 621 = (1978)
1 SCC 248 Sharma Transport Vs. Government of A.P. & Ors.
2001 (5) Suppl. SCR 390 = (2002) 2 SCC 188; Om Kumar
& Ors. Vs. Union of India 2000 (4) Suppl. SCR 693 = (2001)
2 SCC 386; Air India Vs. Nergesh Meerza 1982 (1) SCR 438 c
= (1981) 4 SCC 335; Ajay Hasia & Ors. Vs. Khalid Mujib
=
Sehravardi & Ors. 1981 (2) SCR 79 (1981) 1 SCC 722; and
Ramana Dayaram Sheffy Vs. International Airport Authority
=
of India & Ors. 1979 (3) SCR 1014 (1979) 3 SCC 489: AIR
1979 SC 1628 - referred to.
D
4.2 From a scrutiny of the trend of decisions it is
clearly perceivable that the action of the State, whether it
relates to distribution of largesse, grant of contracts or
allotment of land, is to be tested on the touchstone of
Art.14. A law may not be struck down for being arbitrary E
without pointing out a constitutional infirmity. Therefore,
a State action has to be tested for constitutional infirmities
qua Art.14. The action has to be fair, reasonable, non-
discriminatory, transparent, non-capricious, unbiased,
without favouritism or nepotism, in pursuit of promotion F
of healthy competition and equitable treatment. It should
conform to the norms which are rational, informed with
reasons and guided by public interest, etc. All these
principles are inherent in the fundamental conception of
Art.14. This is the mandate of Art.14. [Para 105) [421-B-E] G
State of A.P. & Ors. vs. McDowell & Co. & Ors. 1996 (3)
SCR 721 = (1996) 3 SCC 709 - referred to.
WHETHER 'AUCTION' A CONSTITUTIONAL MANDATE:
4.3 Auction as a method of disposal of natural H
330 SUPREME COURT REPORTS [2012] 9 S.C.R.
A resources cannot be declared a constitutional mandate
under Art.14 of the Constitution of India. Firstly, Art.14
may imply positive and negative rights for an individual,
but with respect to the State, it is only couched in negative
terms; like an admonition against the State which
B prohibits the State from taking up actions that may be
arbitrary, unreasonable, capricious or discriminatory. Art.
14, therefore, is an injunction to the State against taking
certain type of actions rather than commanding it to take
particular steps. Reading the mandate of auction into its
c scheme would thus, be completely contrary to the intent
of the Article apparent from its plain language. Secondly,
a constitutional mandate is an absolute principle that has
to be applied in all situations; it cannot be applied in
some and not tested in others. The absolute principle is
then applied on a case by case basis to see which
0
actions fulfill the requirements of the constitutional
principle and which do not. [Para 106-107] [421-F-H; 422-
A-C]
"Some Constitutional Problems" by Justice K. Subba
E Rao; "Democracy, Equality and Freedom" by Justice K. K.
Mathew - referred to
4.4 Equality cannot be limited to mean only auction,
without testing it in every scenario. One cannot test the
F validity of a law with reference to the essential elements
of ideal democracy, actually incorporated in the
Constitution. [Para 11 O] [423-0-E]
His Holiness Kesavananda Bharti Sripadagalvaru Vs.
State of Kera/a & Anr. 1973 Suppl. SCR 1 = (1973) 4 SCC
G 225; The State of West Bengal Vs. Anwar Ali Sarkar 1952
SCR 284; Indira Nehru Gandhi Vs. Raj Narain 1976 SCR 347
= 1975 (Supp) SCC 1 - referred to
Kotch Vs. Pilot Comm'rs 330 U.S. 552 - referred to.
H
RE: SPECIAL REFERENCE N0.1 OF 2012 331
4.5 Courts are not at liberty to declare a statute void, A
because in their opinion it is opposed to the spirit of the
Constitution. Courts cannot declare a limitation or
constitutional requirement under the notion of having
discovered some ideal norm. Further, a constitutional
principle must not be limited .to a precise formula but B
ought to be an abstract principle applied to precise
situations. [Para 11 O] [423-F]
4.6 The repercussion of holding auction as a
constitutional mandate would be the voiding of every C
action that deviates from it, including social endeavours,
welfare schemes and promotional policies. It would be
odd to derive auction as a constitutional principle only
for a limited set of situations from the wide and generic
declaration of Art.14. The strength of constitutional
adjudication lies in case to case adjudication and, D
therefore, auction cannot be elevated to a constitutional
mandate. [Para 110] [423-F-G; 424-A-B]
4.7 Finally, reading auction as a constitutional
mandate would be impermissible because such an E
approach may distort another constitutional principle
embodied in Art.39(b), which mandates that the
ownership and control of natural resources should be so
distributed as to best subserve the common good. Art.37
provides that the provisions of Part IV shall not be F
enforceable by any court, but the principles laid down
therein are nevertheless fundamental in the governance
of the country and it shall be the duty of the State to
apply these principles in making laws. "[Para 111] [424-C- ·
G] G
4.8 Therefore, Art.39(b) in a sense, is a restriction on
'distribution' built into the Constitution. But the restriction
is imposed on the object and not the means. The
overarching and underlying principle governing
'distribution' is furtherance of common good. But for the H
332 SUPREME COURT REPORTS [2012] 9 S.C.R.
A achievement of that objective, the Constitution uses the
generic word 'distribution'. Distribution has broad
contours and cannot be limited to meaning only one
method i.e. auction. It envisages all such methods
available for distribution/allocation of natural resources
B which ultimately subserve the "common good". [Para
112] [424-H; 425-A-B]
4.9 The term "distribute" undoubtedly, has wide
amplitude and encompasses all manners and methods
C of distribution, which would include classes, industries,
regions, private and public sections, etc. Having regard
to the basic nature of Art.39(b), a narrower concept of
equality under Art.14 may frustrate the broader concept
of distribution, as conceived in Art. 39(b). There cannot,
therefore, be a cavil that "common good' and "larger
D public interests" have to be regarded as constitutional
reality deserving actualization. [Para 115] [425-H; 426-A-
C]
State of Tamil Nadu & Ors. Vs. L Abu Kavur Bai & Ors.
=
E 1984 (1) SCR 725 (1984) 1 SCC 515 - referred to
4.10 Auctions may be the best way of maximizing
revenue but revenue maximization may not always be
the best way to subserve public good. "Common good"
is the sole guiding factor and a norm under Art. 39(b) for
F distribution of natural resources. It is the touchstone of
testing whether any policy subserves the "common
good" and if it does, irrespective of the means adopted,
it is clearly in accordance with the principle enshrined in
Art. 39(b). The norm of "common good" has to be
G understood and appreciated in a holistic manner. It is
obvious that the manner in which the common good is
best subserved is not a matter that can be measured by
any constitutional yardstick - it would depend on the
economic and political philosophy of the government.
H Revenue maximization is not the only way in which the
RE: SPECIAL REFERENCE N0.1 OF 2012 333
common good can be subserved. Where revenue A
maximization is the object of a policy, being considered
qua that resource at that point of time to be the best way
to subserve the common good, auction would be one of
the preferable methods, though not the only method.
Where revenue maximization is not the object of a policy B
of distribution, the question of auction would not arise.
Revenue considerations may assume secondary position
to developmental considerations. [Para 116 and 119]
·[426-D-F; 427-F-H; 428-A]
The State of Karnataka and Anr. Vs. Shri Ranganatha C
Reddy and Anr. 1978 (1) SCR 641 = (1977) 4 SCC 471;
Bennett Coleman & Co. and Ors. Vs. Union of India and Ors.
1973 (2) SCR 757 = (1972) 2 SCC 788 - referred to.
4.11 There is no constitutional imperative in the D
matter of economic policies. Art. 14 does not pre-define
any economic policy as a constitutional mandate. Even
the mandate of 39(b) imposes no restrictions on the
means adopted to subserve the public good and uses the
broad term 'distribution', suggesting that the E
methodology of distribution is not fixed. Economic logic
establishes that alienation/allocation of natural resources
to the highest bidder may not necessarily be the only way
to subserve the common good, and at times, may run
counter to public good. Therefore, it needs little emphasis F
that disposal of all natural resources through auctions is
clearly not a constitutional mandate. [Para 120] [430-8-D]
4.12 Finally, market price, in economics, is an index
of the value that a market prescribes to a good. However,
this valuation is a function of several dynamic variables; G
it is a science and not a law. Auction is just one of the
several price discovery mechanisms. Since multiple
variables are involved in such valuations, auction or any
other form of competitive bidding, cannot constitute even
an economic mandate, much less a constitutional H
334 SUPREME COURT REPORTS [2012] 9 S.C.R.
A mandate. [Para 147) [444-G-H]
4.13 Auction despite being a more preferable method
of alienation/allotment of natural resources, cannot be
held to be a constitutional requirement or limitation for
alienation of all natural resources and, therefore, every
8
method other than auction cannot be struck down as
ultra-vires the constitutional mandate. [Para 148) [445-A-
B]
LEGITIMATE DEVIATIONS FROM AUCTION:
c
5.1 The Government has repeatedly deviated from
the course of auction and this Court has repeatedly
upheld such actions. The judiciary tests such deviations
on the limited scope of arbitrariness and fairness under
0 Art.14 and its role is limited to that extent. Essentially
whenever the object of policy is anything but revenue
maximization, the Executive is seen to adopt methods
other than auction. [129) [434-E-F]
Sachidanand Pandey & Anr. Vs. State of West Bengal
E & Ors. (1987) 2 SCC 295; M.P. Oil Extraction and Anr. Vs.
State of M.P. & Ors. (1997) 7 SCC 592; Netai Bag & Ors. Vs.
State of WB. & Ors. (2000) 8 SCC 262; M & T Consultants,
Secunderabad Vs. S. Y. Nawab (2003) 8 SCC 100; Haji T.M.
Hassan Rawther Vs. Kera/a Financial Corpn. 1988 (1) SCR
F =
1079 (1988) 1 SCC 166; Vilfianur lyarkkai Padukappu
Maiyam Vs. Union of India & Ors. 1997 (1) Suppl. SCR 671
= (2009) 7 sec 561 - referred to para 128.
5.2 A fortiori, besides legal logic, mandatory auction
G may be contrary to economic logic as well. Different
resources may require different treatment. Very often,
exploration and exploitation contracts are bundled
together due to the requirement of heavy capital in the
discovery of natural resources. A concern would risk
H undertaking such exploration and incur heavy costs only
RE: SPECIAL REFERENCE N0.1 OF 2012 335
if it was assured utilization of the resource discovered; A
a prudent business venture, would not like to incur the
high costs involved in exploration activities and then
compete for that resource in an open auction. The logic
is similar to that applied in patents. Firms are given
incentives to invest in research and development with the B
promise of exclusive access to the market for the sale of
that invention. Such an approach is economically and
legally sound and sometimes necessary to spur research
and development. Similarly, bundling exploration and
exploitation contracts may be necessary to spur growth c
in a specific industry. Similar deviation from auction
cannot be ruled out when the object of a State policy is
to promote domestic development of an industry. Thus,
auction cannot be the sole criteria for alienation of all
natural resources. [Para 130-131) [434-G-H; 435-A-D]
D
Mis Kasturi Lal Lakshmi Reddy Vs. State of Jammu &
Kashmir & Anr. 1980 (3) SCR 1338 = (1980) 4 SCC 1 -
referred to
PLEA OF POTENTIAL ABUSE: E
5.3 A potential for abuse cannot be the basis for
striking down a method as ultra vires the Constitution. It
is the actual abuse itself that must be brought before the
Court for being tested on the anvil of constitutional
provisions. In fact, it may be said that even auction has F
a potential of abuse, like any other method of allocation,
but that cannot be the basis of declaring it as an
unconstitutional methodology either. [Para 135) [437-D-
E]
G
R.K. Garg Vs. Union of India & Ors. 1982 (1) SCR 947 =
(1981) 4 SCC 675; D. K. Trivedi & Sons & Ors. Vs. State of
Gujarat & Ors. 1986 SCR 479 = (1986) Supp SCC 20 -
referred to.
H
336 SUPREME COURT REPORTS [2012] 9 S.C.R.
A JUDICIAL REVIEW OF POLICY DECISIONS:
6.1 The wisdom and advisability of the policies are
ordinarily not amenable to judicial review unless the
policies are contrary to statutory or constitutional
provisions or arbitrary or irrational or an abuse of power.
8
Court cannot strike down a policy decision taken by the
Government merely because it feels that another decision
would have been fairer, or more scientific or logical, or
wiser. Further, it is validity of a law and not its efficacy
that can be challenged. In the context of the instant
C Reference, it needs to be emphasized that this Court
cannot conduct a comparative study of the various
methods of distribution of natural resources and suggest
the most efficacious mode, if there is one universal
efficacious method in the first place. It respects the
D mandate and wisdom of the executive for such matters.
The methodology pertaining to disposal of natural
resources is clearly an economic policy. It entails intricate
economic choices and the court lacks the necessary
expertise to make them. As has been repeatedly said, it
E cannot, and shall not, be the endeavour of this Court to
evaluate the efficacy of auction vis-a-vis other methods
of disposal of natural resources. Court cannot mandate
one method to be followed in all facts and circumstances.
Therefore, auction, an economic choice of disposal of
F natural resources, is not a constitutional mandate. [para
139, 144 and 146] [440-F; 443-D; 444-B-D]
Rustom Cavasjee Cooper Vs. Union of India 1970 (3)
SCR 530 = (1970) 1 SCC 248; R.K. Garg Vs. Union of India
G & Ors. 1982 (1) SCR 947 = (1981) 4 SCC 675; Delhi Science
Forum & Ors. Vs. Union of India & Anr. 1996 (2) SCR 767 =
(1996) 2 SCC 405; Peerless General Finance and Investment
Co. Ltd. & Anr. Vs. Reserve Bank of India 1992 (1) SCR 406
= (1992) 2 SCC 343; Premium Granites & Anr. Vs. State of
T.N. & Ors. 1994 (1) SCR 579 = (1994) 2 sec 691 Delhi
I; Science Forum & Ors. Vs. Union of India & Anr. 1996 (2) SCR
RE: SPECIAL REFERENCE N0.1 OF 2012 337
767 = (1996) 2 SCC 405; BALCO Employees' Union (Regd.) A
Vs. Union of India & Ors. 2001 (5) Suppl. SCR 511 = (2002)
2 SCC 333; Mis Prag Ice & Oil Mills & Anr. Vs. Union of India
[1978) 3 SCC 459; and State of Madhya Pradesh Vs.
Narmada Bachao Ando/an & Anr. 2011 (6) SCR 443 = (2011)
7 SCC 639 - referred to B
6.2 However, courts can test the legality and
constitutionality of these methods. When questioned,
courts are entitled to analyse the legal validity of different
means of distribution and give a constitutional answer as C
to which methods are ultra vires and intra vires the
provisions of the Constitution. Nevertheless, it cannot
and will not compare which policy is fairer than the other,
but, if a policy or law is patently unfair to the extent that
it falls foul of the fairness requirement of Art.14 of the
Constitution, court would not hesitate in striking it down. D
[Para 146) [444-D-F]
6.3 Alienation of natural resources is a policy
decision, and the means adopted for the same are thus,
executive prerogatives. However, when such a policy E
decision is not backed by a social or welfare purpose,
and precious and scarce natural resources are alienated
for commercial pursuits of profit maximizing private
entrepreneurs, adoption of means other than those that
are competitive and maximize revenue may be arbitrary F
and face the wrath of Art. 14 of the Constitution.
Therefore, rather than prescribing or proscribing a
method, a judicial scrutiny of methods of disposal of
natural resources should depend on the facts and
circumstances of each case, in consonance with the G
principles culled out in the instant opinion. Failing which,
the Court, in exercise of power of judicial review, shall
term the executive action as arbitrary, unfair,
unreasonable and capricious due to its antimony with
Art. 14 of the Constitution. [Para 149) [445-C-E]
H
338 SUPREME COURT REPORTS [2012] 9 S.C.R.
A 7.1 In conclusion, answer of this Court to the first set
of five questions is that auctions are not the only
permissible method for disposal of all natural resources
across all sectors and in all circumstances. [Para 150)
[445-F]
B
7.2 As regards the remaining questions, the answer
to the same would have a direct bearing on the mode of
alienation of Spectrum and, .therefore, in light of the
statement made on behalf of the Government that it is not
questioning the correctness of judgment in the 2G Case,
C this Court respectfully declines to answer the said
questions. [Para 151) [445-G-H]
PER JAGDISH SINGH KHEHAR. J( Concurring):
1.1 It is obvious, that the Government is alive to the
0
fact that disposal of some natural resources have to be
made only by auction. Therefore, the first question in the
Presidential Reference must be understood to seek this
Court's opinion on whether there are circumstances in
which natural resources ought to be disposed of only by
E auction. [Para 2) [447-C-D]
1.2 The term "auction" expressed in the instant
opinion may be read as a means to "maximize revenue
returns", irrespective of whether the means adopted
F should technically and correctly be described as tender,
tender-cum-auction, or auction. [Para 3) [448-A-B]
1.3 The concept of equality before the law and the
equal protection of the laws, emerges from the
fundamental right expressed in Art.14 of the Constitution
G of India. The true effect of Art.14 is to provide equality
before the law and the equal protection of the laws not
only with reference to individual rights, but also by
ensuring that its citizens on the other side of the balance
are likewise not deprived of their right to the equality
H before the law, and their right to equal protection of the
RE: SPECIAL REFERENCE N0.1 OF 2012 339
laws. An individual citizen cannot be a beneficiary, at the A
cost of the country i.e., the plurality. Enriching one at the
cost of all others would amount to deprivation to the
plurality i.e., the nation itself. The gist of the first question
in the Presidential Reference, raises the issue whether
ownership rights over the nation's natural resources, vest B
in the citizens of the country. [Para 4] [448-B-C-G-H; 449-
A-B]
1.4 Natural resources are the nation's collective
wealth. Public interest litigation as a jurisprudential C
concept brings into focus the rights of the plurality (as
against individual's right) specially when the plurality is,
for one or the other reason, not in a position to seek
redressal of its grievances. [Para 5] [449-E-F; 449-D]
2.1 An analysis of the decisions of this Court would D
lead to the inference that the State has the right to- trade.
Government must act as a prudent businessman and the
profit earned should be for public benefit and not for
private gains. In executing public contracts in its trading
activity, State must be guided by relevant principles, and E
not by extraneous or irrelevant consideration. The same
should be based on reasonableness and rationality as
well as non-arbitrariness. The State while entering into a
contractual relationship is bound to maintain the
standard or principle which meets the test of F
reasonableness and non-discrimination. And any
departure from the said standards would be invalid
unless the same is supported by good reasons. [Para 6(b)
and (c)] [456-E-F; 459-A-C]
Ramana Dayaram Shetty Vs. International Airport G
Authority of India & Ors., 1979 (3) SCR 1014 = (1979) 3 SCC
-< 489; Rashbihari Panda etc. Vs. State of Orissa 1969 (3) SCR
374 = (1969) 1 SCC 414; S.G. Jaisinghani Vs. Union of India
& Ors., 1967 SCR 703 =AIR 1967 SC 1427; Kasturi Lal
Lakshmi Reddy Vs. State of Jammu & Kashmir & Anr. 1980 H
340 SUPREME COURT REPORTS [2012] 9 S.C.R.
A (3) SCR 1338 = (1980) 4 SCC 1; Dwarkadas Marfatia and
Sons Vs. Board of Trustees of the Port of Bombay, 1989 (2)
SCR 751 = (1989) 3 SCC 293; Mahabir Aauto Stores & Ors.
vs. Indian Oil Corporation & Ors. (1990) 3 SCC 752; Kuman
Shrilekha Vidyarthi & Ors. Vs. State of UP. & Ors. 1990 (1)
B Suppl. SCR 625 = (1991) 1 SCC 212; Lucknow Development
Authority Vs. MK. Gupta, 1993 (3) Suppl. SCR 615 = (1994)
1 SCC 243; Common Cause, A Registered Society Vs. Union
of India & Ors., 1996 (6) Suppl. SCR 719 = (1996) 6 SCC
530; Meerut Development Authority vs. Association of
c Management Studies & Anr. etc. 2009 (6) SCR 663 = (2009)
6 SCC 171, Reliance Natural Resources Ltd. Vs. Reliance
Industries Ltd. etc. 2010 (5) SCR 704 = (2010) 7 SCC 1; Akhil
Bhartiya Upbhokta Congress Vs. State of Madhya Pradesh
& Ors., 2011 (5) SCR 77 = (2011) 5 SCC 29- referred to
D Council of Civil Service Unions vs. Minister for the Civil
Service, (1984) 3 All ER 935, 950 - referred to
Wade: Administrative Law (6th edn.) - referred to
2.2 All powers vested in a public office, even in the
E field of contract, are meant to be exercised for public good
and for promoting public interest; and Art. 14 of the
Constitution applies also to matters of governmental
policy even in contractual matters, and if the policy or any
action of the government fails to satisfy the test of
F reasonableness, the same would be unconstitutional.
[para S(g)] [476-C-D]
Kumari Shrilekha Vidyarlhi & Ors. Vs. State of UP. & Ors.
1990 (1) Suppl. SCR 625 = (1991) 1 SCC 212 - referred to.
G 2.3 In Centre for Public Interest Litigation, it was
affirmed, that the State was duty bound to adopt the
method of auction by giving wide publication while .,.
alienating natural resources, so as to ensure that all
eligible persons can participate in the process. [para 6]
H (501-G]
RE: SPECIAL REFERENCE N0.1 OF 2012 341
Centre for Public Interest Litigation & Ors. vs. Union of A
India & Ors. (2012) 3 SCC 1 - referred to.
2.4 This Court in its judgments has laid down the
parameters as regards the scope of applicability of Art.14
of the Constitution, in matters where the State, its
8
instrumentalities, and their functionaries, are engaged in
contractual obligations. For an action to be able to
withstand the test of Art.14, it has already been expressed
in the "main opinion" that it has to be fair, reasonable,
non-discriminatory, transparent, non-capricious,
unbiased, without favouritism or nepotism, in pursuit of C
promotion of healthy competition and equitable
treatment. The judgments of this Court endorse all those
requirements where the State, its instrumentalities, and
their functionaries, are engaged in contractual
transactions. Therefore, all "governmental policy" drawn D
with reference to contractual matters, it has been held,
must conform to the said parameters. While Art.14
permits a reasonable classification having a rational
nexus to the object sought to be achieved, it does not
permit the power of pick and choose arbitrarily out of E
several persons falling in the same category. Therefore,
a criteria or procedure has to be adopted so that the
choice among those falling in the same category is based
on reason, fair play and non-arbitrariness. Even if there
are only two contenders falling in the zone of F
consideration, there should be a clear, transparent and
objective criteria or procedure to indicate which out of the
two is to be preferred. It is this, which would ensure
transparency. [Para 7) [501-H; 502-A-E]
2.5 Another aspect which emerges from the G
judgments of this Court is that, the State, its
instrumentalities and their functionaries, while exercising
their executive power in matters of trade or business etc.
including making of contracts, should be mindful of
public interest, public purpose and public good. This is H
342 SUPREME COURT REPORTS [2012] 9 S.C.R.
A so, because every holder of public office by virtue of
which he acts on behalf of the State, or its
instrumentalities, is ultimately accountable to the people
in whom sovereignty vests. As such, all powers vested
in the State are meant to be exercised for public good
s and in public interest. Therefore, the question of
unfettered discretion in an executive authority, just does
not arise. The fetters on discretion are - a clear,
transparent and objective criteria or procedure which
promotes public interest, public purpose and public
C good. A public authority is ordained, therefore, to act
reasonably and in good faith and upon lawful and
relevant grounds of public interest. [Para 8] [502-F-H; 503-
A-B]
2.6 Observations recorded by this Court on the
D subject of revenue returns, during the course of the
State's engagements in commercial ventures are being
summarized: It has been held, where the State is simply
selling a product, there can be no doubt that the State
must endeavour to obtain the highest price, subject of
E course to any other overriding public consideration. The
validity of a trading agreement executed by the
Government has to be judged by the test, that the entire
benefit arising therefrom enures to the State, and is not
used as a cloak for conferring private benefits on a
F limited class of persons. In Reliance Natural Resources
Ltd.'s case, the Union of India has adopted the position,
that natural resources are vested in the State as a matter
of trust, for and on behalf of the citizens of the country
and is the solemn duty of the State, to protect those
G natural resources. More importantly, it was accepted, that
natural resources must always be used in the common
interest of the citizens of the country, and not for private
interest. [Para 9] [503-C-H; 504-A]
3.1 When natural resources are made available by the
H State to private persons for commercial exploitation
RE: SPECIAL REFERENCE N0.1 OF 2012 343
exclusively for their individual gains, the State's A
endeavour must be towards maximization of revenue
returns. This alone would ensure, that the fundamental
right enshrined in Art.14 (assuring equality before the law
and the equal protection of the laws), and the directive
principle contained in Art.39(b) (that material resources B
of the community are so distributed as best to subserve
the common good), have been extended to the citizens
of the country. Article 14 does not permit the State to pick
and choose arbitrarily out of several persons falling in the
same category. A transparent and objective criteria/ c
procedure has to be evolved so that the choice amongst
those belonging to the same class or category is based
on reason, fair play, and non-arbitrariness. If the
participation of private persons is for commercial
exploitation exclusively for their individual gains, then the 0
State's endeavour to maximize revenue alone, would
satisfy the constitutional mandate contained in Arts. 14
and 39(b) of the Constitution. [para 10-12] [504-E-G; 505-
B-D]
Common Cause, A Registered Society Vs. Union of India E
& Ors. 1996 (6) Suppl. SCR 719 = (1996) 6 SCC 530 -
referred to.
3.2 Auction is certainly not a constitutional mandate
in the manner expressed, in the "main opinion", but it can F
surely be applied in some situations to maximize revenue
returns, to satisfy legal and constitutional requirements.
It is, therefore, that in the instant opinion it has been
chosen to express the manner of disposal of natural
resources by using the .words "maximization of revenue" G
in place of the term "auction". Further, auction by way of
competitive bidding is certainly an indisputable means,
by which maximization of revenue returns is assured. It
is reiterated that disposal of assets by process of tender,
tender-cum-auction and auction could assure
maximization of revenue returns. Thus, if the State arrives H
344 SUPREME COURT REPORTS [2012] 9 S.C.R.
A at the conclusion, in a given situation, that maximum
revenue would be earned by auction of the natural
resource in question, then that alone would be the
process which it would have to adopt. [Para 3 and 12]
[447-G-H; 505-F-H; 506-A-B]
B
3.3 One is compelled to take judicial notice of the fact,
that allotment of natural resources is an issue of
extensive debate in the country. In Centre for Public
Interest Litigation, extensive revenue loss, in the course
of allocation of the 2G spectrum was duly noticed. On
C each occasion when the issue of allocation of natural
resources results in an alleged loss of revenue, it is
portrayed as a loss to the nation. The Presidential
Reference is aimed at invoking this Court's advisory
jurisdiction to iron out the creases, so that legal and
D constitutional parameters are correctly understood. This
would avoid such controversies in future. Therefore, an
opinion is also being rendered, on the fourth question.
The mandate contained in the Art.39(b) envisages that all
material resources ought to be distributed in a manner
E which would "best sub-serve the common good". It is,
therefore, apparent that governmental policy for
distribution of such resources should be devised by
keeping in mind the "common good" of the community
i.e., the citizens of this country. It has been expressed in
F the "main opinion" that matters of policy fall within the
realm of the legislature or the executive, and cannot be
interfered with, unless the policy is in violation of
statutory law, or is ultra vires the provision(s) of the
Constitution. It is not within the scope of judicial review
G for a court to suggest an alternative policy, which in the
wisdom of the court could be better suited in the
circumstances of a case. Thus far, the position is clearly
unambiguous. [Para 13] [506-C-D; 507-A-B-H; 508-A-C]
3.4 The legality and constitutionality of policy is one
H matter, and the manner of its implementation quite
RE: SPECIAL REFERENCE N0.1 OF 2012 345
another. Even at the implementation stage a forthright and A
legitimate policy, may take the shape of an illegitimate
stratagem. The policy of allocation of natural resources
for public good can be defined by the legislature.
Likewise, policy for allocation of natural resources may
also be determined by the executive. The parameters for B
determining the legality and constitutionality of the two
are exactly the same. Thus, there can be no doubt about
the conclusion recorded in the "main opinion" that
auction which is just one of the. several price recovery
mechanisms, cannot be held to be the only c
constitutionally recognized method for alienation of
natural resources. That should not be understood to
mean, that it can never be a valid method for disposal of
natural resources. [para 13) [514-C-E; 508-D]
3.5 Therefore, no part of the natural resource can be D
dissipated as a matter of largess, charity, donation or
endowment, for private exploitation. Each bit of natural
resource expended must bring back a reciprocal
consideration. The consideration may be in the nature of
earning revenue or may be to "best sub-serve the E
common good". It may well be the amalgam of the two.
There cannot be a dissipation of material resources free
of cost or at a consideration lower than their actual worth.
One set of citizens cannot prosper at the cost of another
set of citizens, for that would not be fair or reasonable. F
[para 13] [514-E-GJ
Case Law Reference:
As per D.K. Jain, J.
G
c2012) 3 sec 1 referred to para 2
[1951] S.C.R. 747 referred to Para 5
[1960] 3 S.C.R. 250 referred to para 5
[1959] S.C.R. 995 referred to para 5 H
346 SUPREME COURT REPORTS (2012] 9 S.C.R.
A [1965] 1 S.C.R. 413 referred to para 5
1975 (1) SCR 504 referred to para 5
1979 (2) SCR 476 referred to para 5
1991 (2) Suppl. SCR 497 referred to para 5
B
1998 (2) Suppl. SCR 400 referred to para 5
1994 (5) Suppl. SCR 1 referred to Para 9
[1934] A.C. 586 referred to Para 12
c [1959] Supp. 1 S.C.R. 806 referred to para 17
A.LR. (30) 1943 FC 13 referred to Para 25
1991 (2) SCR 501 referred to Para 37
D 2002 (2) SCR 1006 referred to Para 45
(1955) 2 SCR 603 referred to Para 47
[1949-50] F.C.R. 595 referred to Para 50
E AIR 1954 SC 636 referred to Para 51
(1993) 4 sec 441 referred to Para 56
2011 (9) SCR 290 relied on para 66
1987 (1) SCR 562 relied on para 66
F
1992 (1) Suppl. SCR 732 relied on para 66
2005 (5) Suppl. SCR 395 referred to para 68
(2004) 3 sec 75 referred to para 69
G
(2003) 6 sec 697 relied on para 70
36 L ED 1018 : 146 referred to para 74
U.S. 387 (1892)
1996 (10) Suppl. SCR 12 referred to para 74
H
RE: SPECIAL REFERENCE N0.1 OF 2012 347
2004 (1) SCR 483 referred to para 74 A
2006 (2) SCR 419 referred to para 74
2009 (3) $CR 1 referred to para 74
2010 (5) SCR 704 referred to para 74 B
2011 (5) SCR 77 referred to para 74
1987 (2) SCR 223 referred to para 74
(2007) 3 sec 184 referred to para 91
c
[1968] 3 SCR 251 relied on Para 92
1959 Supp (1) SCR 528 referred to para 94
AIR 1955 SC 191 referred to para 95
D
[1959] 1 SCR 279 referred to para 95
1974 (2) SCR 348 referred to para 96
1978 (2) SCR 621 referred to Para 97
1981 (2) SCR 79 referred to Para 98 E
1979 (3) SCR 1014 referred to Para 99
2001 (5) Suppl. SCR 390 referred to Para101
2000 (4) Suppl. SCR 693 referred to Para 102
F
1996 (3) SCR 721 referred to Para 103
1982 (1) SCR 438 referred to Para 104
1973 (0) Suppl. SCR 1 referred to para 109
G
1952 SCR 284 referred to para 110
330 U.S. 552 referred to para 110
1976 SCR 347 referred to para 11
H
348 SUPREME COURT REPORTS [2012] 9 S.C.R.
A 1984 (1) SCR 725 referred to para 113
1978 (1) SCR 641 referred to para 117
1973 (2) SCR 757 referred to para 118
1980 (3) SCR 1338 referred to para 118
B
1988 (1) SCR 1079 referred to para 122
1988 (1) SCR 1079 referred to para 124
1997 (1) Suppl. SCR 671 referred to para 125
c (2000) 8 sec 262 referred to para 126
(2003) 8 sec 100 referred to para 127
1997 (1) Suppl. SCR 671 referred to para 128
D 1982 (1) SCR 947 referred to Para 133
1986 SCR 479 referred to para 134
1970 (3) SCR 530 referred to para 137
1994 (1) SCR 579 referred to para 139
E
1996 (2) SCR 767 referred to para 140
2001 (5) Suppl. SCR 511 referred to para 141
1992 (1) SCR 406 referred to para 142
F
19781 3 sec 459 referred to para 143
2011 (6) SCR 443 referred to para 144
As Per Khehar, J.
G 1967 SCR 703 referred to para 6(a)
1969 (3) SCR 374 referred to para 6(b)
1979 (3) SCR 1014 referred to para 6(c)
H 1980 (3) SCR 1338 referred to para 6(d)
RE: SPECIAL REFERENCE N0.1 OF 2012 349
1989 (2) SCR 751 referred to para 6(e) A
(1984) 3 All ER 935, 950 referred to para 6(e)
(1990) 3 sec 752 referred to para 6(f)
1990 (1) Suppl. SCR 625 referred to para 6(g)
B
1993 (3) Suppl. SCR 615 referred to para 6(h)
1996 (6) Suppl. SCR 719 referred to para 6(i)
2009 (6) SCR 663 referred to para 60)
c
2010 (5) SCR 704 referred to para 6(k)
(2012) 3 sec 1 referred to para 6(1)
(2012) 3 sec 1 referred to para 13
ADVISORY JURISDICTION : Special Reference No. 1 of D
2012.
[Under Article 143(1) of the Constitution of India]
[Regarding 2G Spectrum]
E
Goolam E. Vahanvati, D.J. Khambata, A. Mariarputham,
AGs, Indira Jaising, ASG, Shanti Bhushan, Soli J. Sorabjee,
Biswajit Deb, Vivek K. Tankha, Ravindra Shrivastava, C.A.
Sundaram, Harish N. Salve, T.R. Andhyarujina, Shyam Divan,
M.N. Krishnamani, Vikas Singh, Dr. Manish Singhvi, Manjit F
Singh, Guru Krishna Kumar, AAGs., Devadatt Kamat, Anoopam
N. Prasad, Rohit Sharma, Nishanth Patil, Anandh Kannan, T.A.
Khan, D.S. Mahra, Supriya Jain, Sonam Anand, Jhuma Sen,
Nizam Pasha, Prashant Bhushan, Pranav Sachdeva, Shakil
Ahmed, Gaurav Dhingra, A. Subhashini, G.N. Reddy, M. G
Rambabu, S. Nagarajan, Ashoka Thakur, Anil K. Chopra,
Khwairakpam Nobin Singh, Sapam Biswajit Meitei, Navnit
Kumar, Deepika Ghatowar (For Corporate Law Group),
Pragyan Sharma, Rupesh Gupta, Mandakini Sharma, Gautam
Dhamija, Heshu Kayina, B.S. Banthia, Vikas Upadhyay, H
350 SUPREME COURT REPORTS [2012] 9 S.C.R.
A Sameer Sodhi, Avijit Singh, Rachana Srivastava, Utkarsh
Sharma, Gopal Singh, Manish Kumar, Chandan Kumar, Radha
Shyam Jena, lrshad Ahmad, Milind Kumar, Ramesh Babu M.R.,
Sushrut Jindal, Madhavi Divan, Sanjay Kharde, Asha G. Nair,
Sunil Fernandes, Vernika Tomar, V.N. Raghupathy, P.V.
B Yogeswaran, C.D. Singh, Dr. Indra Pratap Singh, Sunny
Choudhary, Himinder Lal, Anil Shrivastav, Rituraj Biswas,
Edward Belho, K. Enatoli Serna, Nimshim Vashum, Jagjit Singh
Chhabra, Aruna Mathur, Yusuf Khan, Kamal Mohan Gupta, B.
Balaji, A. Prasanna Venkat, Hemantika Wahi, Jayesh Gaurav,
C S. Chandra Shekhar, Pallavi S. Shroff, Manu Nair, Kirat Singh
Nagra, Rohini Musa, Saanjh N. Purohit, Monika Singhal, Mohit
Auluck, A.P. Medh (For Suresh A. Shroff & Co.), Rohit Kumar
Singh, Anupam Bharti, Ruchi A. Mahajan, Binsy Susan,
Anannya Ghosh, Samarika Singh (For Suresh A. Shroff & Co.),
D Sunil Dogra, Kiran Suri, S.J. Amith, Jayna Kothari, Shruthi
Ramakrishna, Vasuman Khandelwal, Mohit Kumar Shah, Dr.
Subramanian Swamy (ln-Peson), Dipak Kumar Jena, Minakshi
Ghosh Jena, Rajesh Singh, Gautam Narayan, T.G.N. Nair for
the Appearing Parties.
E The opinions of the Court were delivered by
D.K. JAIN, J. [FOR S.H. KAPADIA, CJ, HIMSELF,
DIPAK MISRA & RANJAN GOGOi, JJ.]
In exercise of powers conferred under Article 143(1) of the
F · Constitution of India, the President of India has on 12th April,
2012, made the present Reference. The full text of the
Reference (sans the annexures) is as follows:
"WHEREAS in 1994, the Department of
G Telecommunication, Government of India ("GOI"), issued
8 Cellular Mobile Telephone Services Licenses ("CMTS
Licenses"), 2 in each of the four Metro cities of Delhi,
Mumbai, Kolkata and Chennai for a period of 10 years (the
"1994 Licenses"). The 1994 licensees were selected
H based on rankings achieved by them on the technical and
RE: SPECIAL REFERENCE N0.1 OF 2012 351
[D.K. JAIN, J.]
financial evaluation based on parameters set out by the A
Gol in the tender and were required to pay a fixed licence
fee for initial three years and subsequently based on
number of subscribers subject to minimum commitment
mentioned in the tender document and licence agreement.
The 1994 Licenses issued by Gol mentioned that a B
cumulative maximum of upto 4.5 MHz in the 900 MHz
bands would be permitted based on appropriate
justification. There was no separate upfront charge for the
allocation of Spectrum to the licensees, who only paid
annual Spectrum usage charges, which will be subject to c
revision from time to time and which under the terms of
the license bore the nomenclature "licence fee and royalty".
A copy of the 1994 Licenses, along with a table setting
out the pre-determined Licence Fee as prescribed by DoT
in the Tender, is annexed hereto as Annexure I (Colly).
D
WHEREAS in December 1995, 34 CMTS ·ucenses
were granted based on auction for 18 telecommunication
circles for a period of 10 years (the "1995 Licenses"). The
1995 Licenses mentioned that a cumulative maximum of
up to 4.4 MHz in the 900 MHz bands shall be permitted to E
the licensees, based on appropriate justification. There
was no separate upfront charge for allocation of spectrum
to the licensees who were also required to pay annual
spectrum usage charges, which under the terms of the
license bore the nomenclature "licence fee and royalty" F
which will be subject to revision from time to time. A copy
of the 1995 Licenses, along with a table setting out the
fees payable by the highest bidder, is annexed hereto as
Annexure II (Colly).
G
WHEREAS in 1995, bids were also invitet. for basic
telephone service licenses ("BTS Licenses") with the
license fee payable for a 15 year period. Under the terms
of the BTS Licenses, a licensee could provide fixed line
basic telephone services as well as wireless basic H
352 SUPREME COURT REPORTS [2012] 9 S.C.R.
A telephone services. Six licenses were granted in the year
1997-98 by way of auction through tender for providing
basic telecom services (the "1997 BTS Licenses"). The
license terms, inter-alia, provided that based on the
availability of the equipment for Wireless in Local Loop
B (WLL), in the world market, the spectrum in bands
specified therein would be considered for allocation
subject to the conditions mentioned therein. There was no
separate upfront charge for allocation of spectrum and the
licensees offering the basic wireless telephone service
c were required to pay annual Spectrum usage charges,
which under the terms of the license bore the nomenclature
"licence fee and royalty". A sample copy of the 1997 BTS
Licenses containing the table setting out the license fees
paid by the highest bidder is annexed hereto as Annexure
Ill (Colly).
D
WHEREAS in 1997, the Telecom Regulatory
Authority of India Act, 1997 was enacted and the Telecom
Regulatory Authority of India (the "TRAI") was established.
E WHEREAS on 1st April, 1999, the New Telecom Policy
1999 ("NTP 1999") was brought into effect on the
recommendation of a Group on Telecom ("GoT") which
had been constituted by Gol. A copy of NTP 1999 is
annexed hereto as Annexure IV. NTP 1999 provided that
F Cellular Mobile Service Providers ("CMSP") would be
granted a license for a period of 20 years on the payment
of a one-time entry fee and licence fee in the form of
revenue share. NTP 1999 also provided that BTS (Fixed
Service Provider or FSP) Licenses for providing both fixed
and wireless (WLL) services would also be issued for a
G
period of 20 years on payment of a one-time entry fee and
licence fee in the form of revenue share and prescribed
charges for spectrum usage, appropriate level of which
was to be recommended by TRAI. The licensees both
cellular and basic were also required to pay annual
H
Spectrum usage charges.
RE: SPECIAL REFERENCE N0.1 OF 2012 353
[D.K. JAIN, J.]
WHEREAS based on NTP 1999, a migration A
package for migration from fixed license fee to one time
entry fee and licence fee based on revenue share regime
was offered to all the existing licenses on 22nd July, 1999.
This came into effect on 1st August 1999. Under the
migration package, the licence period for all the CMTS B
aod FSP licensees was extended to 20 years from the
date of issuance of the Licenses.
WHEREAS in 1997 and 2000, CMTS Licenses
were also granted in 2 and 21 Circles to Mahanagar
Telephone Nigam Limited ("MTNL"} and Bharat Sanchar C
Nigam Limited ("BSNL") respectively (the "PSU
Licenses"). However, no entry fee was charged for the
PSU Licenses. The CMTS Licenses issued to BSNL and
MTNL mentioned that they would be granted GSM
Spectrum of 4.4 + 4.4 MHz in the 900 MHz band. The PSU D
Licensees were also required to pay annual spectrum
usage charges. A copy of the PSU Licenses is annexed
hereto as Annexure V (Colly).
WHEREAS in January 2001, based on TRAl's E
recommendation, DoT issued guidelines for issuing CMTS
Licenses for the 4th Cellular Operator based on tendering
process structured as "Multistage Informed Ascending
Bidding Process". Based on a tender, 17 new CMTS
Licenses were issued for a period of 20 years in the 4 F
Metro cities and 13 Telecom Circles (the "2001 Cellular
Licenses"). The 2001 Licenses required that the licensees
pay a one-time non refundable entry fee as determined
through auction as above and also annual license fee and
annual spectrum usage charges and there was no G
separate upfront charge for allocation of spectrum. In
accordance with the terms of tender document, the license
terms, inter-alia, provided that a cumulative maximum of
upto 4.4 MHz + 4.4 MHz will be permitted and further
based on usage, justification and availability, additional
H
354 SUPREME COURT REPORTS [2012] 9 S.C.R.
A spectrum upto 1.8 MHz + 1.8 MHz making a total of 6.2
MHz + 6.2 MHz, may be considered for assignment, on
case by case basis, on payment of additional Licence fee.
The bandwidth upto maximum as indicated i.e. 4.4 MHz
& 6.2 MHz as the case may be, will be allocated based
B on the Technology requirements (e.g. CDMA@ 1.25 MHz,
GSM @ 200 KHz etc.). The frequencies assigned may not
be contiguous and may not be same in all cases, while
efforts would be made to make available larger chunks to
the extent feasible. A copy of the 2001 Cellular Licenses,
c along with a table setting out the fees payable by the
highest bidder, is annexed hereto as Annexure VL
WHEREAS in 2001, BTS Licenses were also
issued for providing both fixed line and wireless basic
telephone services on a continual basis (2001 Basic
D Telephone Licenses). Service area wise one time Entry
Fee and annual license fee as a percentage of Adjusted
Gross Revenue (AGR) was prescribed for grant of BTS
Licenses. The licence terms, inter-alia, provided that for
Wireless Access System in local area, not more than 5 +
E 5 MHz in 824-844 MHz paired with 869-889 MHz band
shall be allocated to any basic service operator including
existing ones on FCFS basis. A detailed procedure for
allocation of spectrum on FCFS basis was given in
Annexure-IX of the 2001 BTS license. There was no
F separate upfront charge for allocation of spectrum and the
Licensees were required to pay revenue share of 2% of
the AGR earned from wireless in local loop subss;ribers
as spectrum charges in addition to the one time entry fee
and annual license fee. A sample copy of the 2001 Basic
G Telephone License along with a table setting out the entry
fees is annexed hereto as Annexure VII.
WHEREAS on 27th October, 2003, TRAI
recommended a Unified Access Services Licence
("UASL") Regime. A copy of TRAl's recommendation is
H annexed hereto as Annexure VIII.
RE: SPECIAL REFERENCE N0.1 OF 2012 355
[D.K. JAIN, J.]
WHEREAS on 11.11.2003, Guidelines were issued, A
specifying procedure for migration of existing operators tc
the new UASL regime. As per the Guidelines, all
applications for new Access Services License shall be in
the category of Unified Access Services Licence. Later,
based on TRAI clarification dated 14.11.2003, the entry fee B
for new Unified Licensee was fixed same as the entry fee
of the 4th cellular operator. Based on further
recommendations of TRAI dated 19.11.2003, spectrum to
the new licensees was to be given as per the existing
terms and conditions relating to spectrum in the respective c
license agreements. A copy of the Guidelines dated
11.11.2003 is annexed hereto as Annexure IX.
WHEREAS consequent to enhancement of FOi limit
in telecom sector from 49% to 74%, revised Guidelines
for grant of UAS Licenses were issued on 14.12.2005. D
These Guidelines, inter-alia stipulate that Licenses shall be
issued without any restriction on the number of entrants for
pr.ovisior'I of Unified Access Services in a Service Area
and the applicant will be required to pay one time non-
refundable Entry, annual License fee as a percentage of E
Adjusted Gross Revenue (AGR) and spectrum charges on
revenue share basis. No separate upfront charge for
allocation of spectrum was prescribed. Initial Spectrum
· was allotted as per UAS License conditions to the service
providers in different frequency bands, subject to F
availability. Initially allocation of a cumulative maximum up
to 4.4 MHz + 4.4 MHz for TOMA based systems or 2.5
MHz + 2.5 MHz for CDMA based systems subject to
availability was to be made. Spectrum not more than 5
MHz + 5 MHz in respect of CDMA system or 6.2 MHz + G
6.2 MHz in respect of TOMA based system was to be
allocated to any new UAS licensee. A copy of the UASL
Guidelines dated 14.12.2005 is annexed hereto as
Annexure X.
H
356 SUPREME COURT REPORTS [2012] 9 S.C.R.
A WHEREAS after the introduction of the UASL in
2003 and until March 2007, 51 new UASL Licenses were
issued based on policy of First Come-First Served, on
payment of the same entry fee as was paid for the 2001
Cellular Licenses (the "2003-2007 Licenses") and the
B spectrum was also allocated based on FCFS under a
separate wireless operating license on case by case basis
and subject to availability. Licensees had to pay annual
spectrum usage charges as a percentage of AGR, there
being a no upfront charge for allocation of spectrum. A
c copy of the 2003-2007 License, along with a table setting
out the fees payable, is annexed hereto as Annexure XI
(Colly).
WHEREAS on 28th August 2007, TRAI revisited the
issue of new licenses, allocation of Spectrum, Spectrum
D charges, entry fees and issued its recommendations, a
copy of which is annexed hereto as Annexure XII. TRAI
made further recommendations dated 16.07.2008 which
is annexed hereto as Annexure XIII.
E WHEREAS in 2007 and 2008, Gol issued Dual
Technology Licences, where under the terms of the existing
licenses were amended to allow licensees to hold a license
as well as Spectrum for providing services through both
GSM and CDMA network. First amendment was issued
F in December, 2007. All licensees who opted for Dual
Technology Licences paid the :>ame entry fee, which was
an amount equal to the amount prescribed as entry fee for
getting a new UAS licence in the same service area. The
amendment to the license inter-alia mentioned that initially
a cumulative maximurri of upto 4.4 MHz+ 4.4 MHz was to
G
be allocated in the case of TOMA based systems(@ 200
KHz per carrier or 30 KHz per carrier) and a maximum of
2.5 MHz + 2.5 MHz was to be allocated in the case of
CDMA based systems(@ 1.25 MHz per carrier), on case
by case basis subject to availability. It was also, inter-alia,
H
RE: SPECIAL REFERENCE N0.1 OF 2012 357
[D.K. JAIN, J.]
mentioned that additional spectrum beyond the above A
stipulation may also be considered for allocation after
ensuring optimal and efficient utilization of the already
allocated spectrum taking into account all types of traffic
and guidelines/criteria prescribed from time to time.
However, spectrum not more than 5 + 5 MHz in respect of B
CDMS system and 6.2 + 6.2 MHz in respect of TOMA
based system was to be allocated to the licensee. There
was no separate upfront charge for allocation of Spectrum.
However, Dual Technology licensees were required to pay
Spectrum usage charges in addition to the license fee on c
revenue share basis as a percentage of AGR. Spectrum
to these licensees was allocated 10.01.2008 onwards.
WHEREAS Subscriber based criteria for CMTS
was prescribed in the year 2002 for allocation of additional
spectrum of 1.8 + 1.8 MHz beyond 6.2 + 6.2 MHz with a D
levy of additional spectrum usage charge of 1% of AGR.
The allocation criteria was revised from time to time. A
copy of the Do T letter dated 01.02.2002 in this regard is
annexed hereto as Annexure XIV.
E
WHEREAS for the spectrum allotted beyond 6.2
MHz, in the frequency allocation letters issued by DoT May
2008 onwards, it was mentioned inter-alia that allotment
of spectrum is subject to pricing as determined in future
by the Gol for spectrum beyond 6.2 MHz + 6.2 MHz and F
the outcome of Court orders. However, annual spectrum
usage charges were levied on the basis of AGR, as per
the quantum of spectrum assigned. A sample copy of the
frequency allocation letter is annexed hereto as Annexure
xv. G
WHEREAS Spectrum for the 3G Band (i.e. 2100
MHz band) was auctioned in 2010. The terms of the
auction stipulated that, for successful new entrants, a fresh
license agreement would be entered into and for existing
licensees who were successful in the auction, the license H
358 SUPREME COURT REPORTS (2012] 9 S.C.R.
A agreement would be amended for use of Spectrum in the
3G band. A copy of the Notice inviting Applications and
Clarifications thereto are annexed hereto and marked as
Annexure XVI (Colly). The terms of the amendment letter
provided, inter alia, that the 3G spectrum would stand
B withdrawn if the license stood terminated for any reason.
A copy of the standard form of the amendment letter is
annexed hereto and marked as Annexure XVII.
WHEREAS letters of intent were issued for 122
Licenses for providing 2G services on or after 10 January
c 2008, against which licenses (the "2008 Licenses") were
subsequently issued. However, pursuant to the judgment
of this Hon'ble Court dated 2nd February, 2012 in Writ
Petition (Civil) No.423 of 2010 (the "Judgment"), the 2008
Licenses have been quashed. A copy of the judgment is
D annexed hereto and marked Annexure XVIII.
WHEREAS the Gol has also filed an Interlocutory
Application for clarification of the Judgment, wherein the
Gol has placed on record the manner in which the auction
E is proposed to be held pursuant to the Judgment and
sought appropriate clarificatory orders/directions from the
Hon'ble Court. A copy of the Interlocutory Application is
annexed hereto and marked as Annexure XIX.
WHEREAS while the Gol is implementing the
F directions set out in the Judgment at paragraph 81 and
proceeding with a fresh grant of licences and allocation of
spectrum by auction, the Gol is seeking a limited review
of the Judgment to the extent it impacts generally the
method for allocation of national resources by the State.
G A copy of the Review Petition is annexed hereto and
marked as Annexure XX.
WHEREAS by the Judgment, this Hon'ble Court
directed TRAI to make fresh recommendations for grant
H of licenses and allocation of Spectrum in the 2G band by
RE: SPECIAL REFERENCE N0.1 OF 2012 359
[D.K. JAIN, J.]
holding an auction, as was done for the allocation of A
Spectrum for the 3G licenses.
WHEREAS, in terms of the directions of this Hon'ble
Court, Gol would now be allocating Spectrum in the relevant
2G bands at prices discovered through auction.
B
WHEREAS based on the recommendations of TRAI
dated 11.05.2010 followed by further clarifications and
recommendations, the Gol has prescribed in February
2012, the limit for spectrum assignment in the Metro
Service Areas as 2x1 OMHz/2x6.25 MHz and in rest of the C
Service Areas as 2x8MHz/2x5 MHz for GSM (900 MHz,
1800 MHz band)/CDMA(800 MHZ band), respectively
subject to the condition that the Licensee can acquire
additional spectrum beyond prescribed limit in the open
market should there be an auction of spectrum subject to D
the further condition that total spectrum held by it does not
exceed the limits prescribed for merger of licenses i.e.
25% of the total spectrum assigned in that Service Area
by way of auction or otherwise. This limit for CDMS
spectrum is 10 MHz. E
WHEREAS, in view of the fact that Spectrum may
need to be allocated to individual entities from time to time
in accordance with criteria laid down by the Gol, such as
subscriber base, availability of Spectrum in a particular
circle, inter-se priority depending on whether the Spectrum F
comprises the initial allocation or additional allocation, etc.,
it may not always be possible to conduct an auction for the
allocation of Spectrum.
AND WHEREAS in view of the aforesaid, the G
auctioning of Spectrum in the 2G bands may result in a
situation where none of the Licensees, using the 2G bands
of 800 MHz., 900 MHz and 1800 MHz would have paid any
separate upfront fee for the allocation of Spectrum.
H
360 SUPREME COURT REPORTS [2012] 9 S.C.R.
A AND WHEREAS the Government of India has
received various notices from companies based in other
countries, invoking bilateral investment agreements and
seeking damages against the Union of India by reason of
the cancellation/threat of cancellation of the licenses.
B
AND WHEREAS in the circumstance certain
questions of law of far reaching national and international
implications have arisen, including in relation to the
conduct of the auction and the regulation of the
telecommunications industry in accordance with the
c Judgment and FDI into this country in the telecom industry
and otherwise in other sectors.
Given that the issues which have arisen are of great
public importance, and that questions of law have arisen
D of public importance and with such far reaching
consequences for the development of the country that it is
expedient to obtain the opinion of the Hon'ble Supreme
Court of India thereon.
NOW THEREFORE, in exercise of powers
E
conferred upon me by clause (1) of Article 143 of the
Constitution of India, I, Pratibha Devisingh Patil, President
of India, hereby refer the following questions to the
Supreme Court of India for consideration and report
thereon, namely:
F
Q.1 Whether the only permissible method for
disposal of all natural resources across all
sectors and in all circumstances is by the
conduct of auctions?
G
Q.2 Whether a broad proposition of law that only
the route of auctions can be resorted to for
disposal of natural resources does not run
contrary to several judgments of the Supreme
Court including those of Larger Benches?
H
RE: SPECIAL REFERENCE N0.1 OF 2012 361
[D.K. JAIN, J.]
Q.3 Whether the enunciation of a broad principle, A
even though expressed as a matter of
constitutional law, does not really amount to
formulation of a policy and has the effect of
unsettling policy decisions formulated and
approaches taken by various successive B
governments over the years for valid
considerations, including lack of public
resources and the need to resort to
innovative and different approaches for the
development of various sectors of the c
economy?
Q.4 What is the permissible scope for
interference by courts with policy making by
the Government including methods for
disposal of natural resources? D
Q.5 Whether, if the court holds, within the
permissible scope of judicial review, that a
policy is flawed, is the court not obliged to
take into account investments made under E
the said policy including investments made
by foreign investors under multilateral/
bilateral agreements?
Q.6 If the answers to the aforesaid questions
F
lead to an affirmation of the judgment dated
02.02.2012 then the following questions may
arise, viz.
(i) whether the judgment is required to be given
retrospective effect so as to unsettle all G
licences issued and 2G spectrum (800, 900,
and 1800 MHz bands) allocated in and after
1994 and prior to 10.01.2008?
(ii) whether the allocation of 2G spectrum in all H
362 SUPREME COURT REPORTS [2012] 9 S.C.R.
A circumstances and in all specific cases for
different policy considerations would
nevertheless have to be undone?
And specifically
B (iii) Whether the telecom licences granted in
1994 would be affected?
(iv) Whether the Telecom licences granted by
way of basic licences in 2001 and licences
c granted between the period 2003-2007
would be affected?
(v) Whether it is open to the Government of India
to take any action to alter the terms of any
licence to ensure a level playing field among
D
all existing licensees?
(vi) Whether dual technology licences granted in
2007 and 2008 would be affected?
E (vii) Whether it is necessary or obligatory for the
Government of India to withdraw the
Spectrum allocated to all existing licensees
or to charge for the same with retrospective
effect and if so on what basis and from what
date?
F
Q.7 Whether, while taking action for conduct of auction
in accordance with the orders of the Supreme
Court, it would remain permissible for the
Government to:
G
(i) Make provision for allotment of Spectrum
from time to time at the auction discovered
price and in accordance with laid down
criteria during the period of validity of the
H auction determined price?
RE: SPECIAL REFERENCE N0.1 OF 2012 363
[D.K. JAIN, J.]
(ii) Impose a ceiling on the acquisition of A
Spectrum with the aim of avoiding the
emergence of dominance in the market by
any licensee/applicant duly taking into
consideration TRAI recommendations in this
regard? B
(iii) Make provision for allocation of Spectrum at
auction related prices in accordance with
laid down criteria in bands where there may
be inadequate or no competition (for e.g. C
there is expected to be a low level of
competition for CDMA in 800 MHz band and
TRAI has recommended an equivalence ratio
of 1.5 or 1.3X1 .5 for 800 MHz and 900 MHz
bands depending upon the quantum of
spectrum held by the licensee that can be D
applied to auction price in 1800 MHz band
in the absence of a specific price for these
bands)?
Q.8 What is the effect of the judgment on 3G Spectrum E
acquired by entities by auction whose licences have
been quashed by the said judgment?
NEW DELHI;
DATED: 12 April 2012 PRESIDENT OF INDIA"
F
2. A bare reading of the Reference shows that it is
occasioned by the decision of this Court, rendered by a bench
of two learned Judges on 2nd February, 2012 in Centre for
Public Interest Litigation & Ors. Vs. Union of India & Ors. 1 (for
brevity "2G Case"). G
3. On receipt of the Reference, vide order dated 9th May,
2012, notice was issued to the Attorney General for India. Upon
hearing the learned Attorney General, it was directed vide order
1. c2012) 3 sec 1. H
364 SUPREME COURT REPORTS [2012] 9 S.C.R.
A dated 11th May, 2012, that notice of the Reference shall be
issued to all the States through their Standing Counsel; on
Centre for Public Interest Litigation (CPIL) and Dr.
Subramanian Swamy (petitioners in the 2G Case); as also on
the Federation of Indian Chambers of Commerce and Industry
B (FICCI) and Confederation of Indian Industry (Cll), as
representatives of the Indian industry. On the suggestion of the
learned Attorney General, it was also directed (though not
recorded in the order), that the reference shall be dealt with in
two parts viz. in the first instance, only questions No. 1 to 5
C would be taken up for consideration and the remaining
questions shall be taken up later in the light of our answers to
the first five questions.
4. At the commencement of the hearing of the Reference
on 10th July, 2012, a strong objection to the maintainability of
D the Reference was raised by the writ petitioners in the 2G Case.
Accordingly, it was decided to first hear the learned counsel
on the question of validity of the Reference.
SUBMISSIONS ON MAINTAINABILITY:
E
5. Mr. Soli Sorabjee, learned senior counsel, appearing
for CPIL, strenuously urged that in effect and substance, the
Reference seeks to question the correctness of the judgment
in the 2G Case, which is not permissible once this Court has
pronounced its authoritative opinion on the question of law now
F sought to be raised. The learned counsel argued that reference
under Article 143(1) of the Constitution does not entail appellate
or review jurisdiction, especially in respect of a judgment which
has attained finality. According to the learned counsel, it is
evident from the format of the Reference that it does not
G express or suggest any 'doubt' as regards the question of fact
or law relating to allocation of all natural resources, a sine-qua-
non for a valid reference. In support of the proposition, learned
counsel placed reliance on observations in earlier references
- In Re: The Delhi Laws Act, 1912, the Ajmer-Merwara
H (Extension of Laws) Act, 1947 And The Part C States (Laws)
RE: SPECIAL REFERENCE N0.1 OF 2012 365
[D.K. JAIN, J.]
Act, 1950 2, In Re: The Berubari Union and Exchange of A
Enclaves Reference Under Article 143(1) of the Constitution
of lndia 3 , In Re: The Kera/a Education Bill, 195, 7 In
Reference Under Article 143(1) Of The Constitution of lndia 4,
Special Reference No.1 of 19645 (commonly referred to as
"Keshav Singh"), In Re: Presidential Po/16 , In Re: The Special B
Courts Bill, 19787, In the Matter of: Cauvery Water Disputes
Tribuna/8 (hereinafter referred to as "Cauvery-11") and Special
Reference No. 1 of 1998 Re. 9
6. Next, it was contended by the learned senior counsel
that if for any reason, the Executive feels that the 2G Case does C
not lay down a correct proposition of law, it is open to it to
persuade another bench, before which the said judgment is
relied upon, to refer the issue to a larger bench for
reconsideration. In short, the submission was that an
authoritative pronouncement, like the one in the 2G Case, D
cannot be short circuited by recourse to Article 143(1 ).
7. Learned counsel also contended that the Reference as
framed is of an omnibus nature, seeking answers on
hypothetical and vague questions, and therefore, must not be E
answered. Commending us to In Re: The Special Courts Bill,
1978 (supra) and several other decisions, learned counsel
urged that a reference under Article 143(1) of the Constitution
for opinion has to be on a specific question or questions. It was
asserted that by reason of the construction of the terms of F
Reference, the manner in which the questions have been
2. [1951] S.C.R. 747.
3. (1960) 3 S.C.R. 250.
4. [1959) S.C.R. 995. G
5. [1965] 1 S.C.R. 413.
6. (1974) 2 sec 33.
1. (1979) 1 sec 380.
8. 1993 Supp (1) sec 96 (II).
9. (1998) 1 sec 739. H
366 SUPREME COURT REPORTS [2012] 9 S.C.R.
A framed and the nature of the answers proposed, this Court
would be entitled to return the Reference unanswered by
pointing out the aforesaid impediments in answering it. Lastly,
it was fervently pleaded that if the present Reference is
entertained, it would pave the way for the Executive to
B circumvent or negate the effect of inconvenient judgments, like
the decision in the 2G Case, which would not only set a
dangerous and unhealthy precedent, but would also be clearly
contrary to the ratio of the decision in Cauvery II.
8. Mr. Prashant Bhushan, learned senior counsel, while
C adopting the arguments advanced by Mr. Soli Sorabjee,
reiterated that from the format of questions No.1 to 5, as well
as from the review petition filed by the Government in the 2G
Case, it is clear that the present Reference seeks to overrule
the decision in the 2G Case by reading down the direction that
D allowed only 'auction' as the permissible means for allocation
of all natural resource, in paragraphs 94 to 96 of the 2G Case,
to the specific case of spectrum. It was argued by the learned
counsel that it is apparent from the grounds urged in the review
petition filed by the Government that it understood the ratio of
E the 2G Case, binding them to the form of procedure to be
followed while alienating precious natural resources belonging
to the people, and yet it is seeking to use the advisory
jurisdiction of this Court as an appeal over its earlier decision.
It was contended that even if it be assumed that a doubt relating
F to the disposal of all natural resources has arisen on account
of conflict of decisions on the point, such a conflict cannot be
resolved by way of a Presidential reference; that would amount
to holding that one or the other judgments is 1n.correctly
decided, which, according to the learned counsel, is beyond
G the scope of Article 143(1). Learned counsel alleged that the
language in which the Reference is couched, exhibits mala
fides on the part of the Executive. He thus, urged that we should
refrain from giving an opinion.
9. Dr. Subramanian Swamy, again vehemently objecting
H
RE: SPECIAL REFERENCE N0.1 OF 2012 367
[D.K. JAIN, J.]
to the maintainability of the Reference, on similar grounds, A
added that the present Reference is against the very spirit of
Article 143(1 ), which, according to the constituent assembly
debates, was meant to be invoked sparingly, unlike the case
here. It was pleaded that the Reference is yet another attempt
to delay the implementation of the directions in the 2G Case. B
Relying on the decision of this Court in Dr. M. Ismail Faruqui
& Ors. Vs. Union of India & Ors. 10, Dr. Swamy submitted that
we will be well advised to return the Reference unanswered.
10. Mr. G.E. Vahanvati, the learned Attorney General for C
India, defending the Reference, submitted that the plea
regarding non-maintainability of the Reference on the ground
that it does not spell out a 'doubt', is fallacious on a plain
reading of the questions framed therein. According to him,
Article 143(1) uses the word 'question' which arises only when
there is a 'doubt' and the very fact that the President has sought D
the opinion of this Court on the questions posed, shows that
there is a doubt in the mind of the Executive on those issues.
It was stressed that merely because the Reference does not
use the word 'doubt' in the recitals, as in other cited cases,
does not imply that in substance no doubt is entertained in E
relation to the mode of alienation of all natural resources, other
than spectrum, more so when the questions posed for opinion
have far reaching national and international implications. It was
urged that the content of the Reference is to be appreciated in
proper perspective, keeping in view the context and not the F
form.
11. It was urged that maintainability and the discretion to
decline to answer a reference are two entirely different things.
The question of maintainability arises when ex-facie, the G
Presidential reference does not meet the basic requirements
of Article 143(1), contrastive to the question of discretion, which
is the power of the Court to decline to answer a reference, for
good reasons, once the reference is maintainable. In support
10. (1994) 6 sec 360. H
368 SUPREME COURT REPORTS [2012] 9 S.C.R
A of-the proposition, reliance was placed on In Re: The Kera/a
Education Bill, 1957 (supra), Keshav Singh and In Re: The
Special Courts Bill, 1978 (supra). According to the learned
counsel, the question as to whether the reference is to be
answered or not, is not an aspect of maintainability, and is to
B be decided only after hearing the reference on merits.
12. Learned Attorney General, while contesting the plea
that in a reference under Article 143(1), correctness or
otherwise of earlier decisions can never be gone into, submitted
C that in a Presidential reference, there is no constitutional
embargo against reference to earlier decisions in order to
clarify, restate or even to form a fresh opinion on a principle of
law, as long as an inter partes decision is left unaffected. In
support of the contention that in the past, references have been
made on questions in relation to the correctness of judgments,
D learned counsel placed reliance on the decisions of this Court
In Re: The Delhi Laws Act, 1912 (supra), Special Reference
No.1 of 1998 (supra), Keshav Singh (supra) and of the Privy
Council In re Piracy Jure Gentium 11 • It was asserted that it has
been repeatedly clarified on behalf of the Executive that the
E decision in the 2G Case has been accepted and is not being
challenged. The Reference was necessitated by certain
observations made as a statement of law in the said judgment
which require to be explicated. Referring to certain observations
in Re: The Berubari Union and Exchange of Enclaves (supra),
F learned counsel submitted that this Court had accepted that a
reference could be answered to avoid protracted litigation.
13. Learned Attorney General also contended that
withdrawal of the review petition by the Government is of no
G consequence ; its withdrawal does not imply that the question
about the permissible manner of disposal of other natural
resources, and the issues regarding the environment for
investment in the country, stood settled. Stoutly refuting the
allegation that the reference is mala fide, learned counsel
H 11. (1934] A.C. 586.
RE: SPECIAL REFERENCE N0.1 OF 2012 369
[D.K. JAIN, J.]
submitted that in In Re Presidential Poll (supra), it is clearly A
laid down that the Court cannot question the bona fides of the
President making the reference.
14. Mr. T.R. Andhyarujina, learned senior counsel, voiced
concerns arising out of an apparent conflict between provisions
B
of the statutes and the judgment delivered in the 2G Case;
specifically with reference to Sections 10 and 11 of the Mines
and Minerals (Regulation and Development) Act, 1957 (for
short, "MMRD Act"}, which prescribe a policy of preferential
treatment and first come first served, unlike the 2G Case, which C
according to the learned counsel only mandates auction for all
natural resources. He thus, urged this Court to dispel all
uncertainties regarding the true position of law after the
judgment in the 2G Case, by holding it as per incuriam in light
of the provisions of the MMRD Act and other statutes.
D
15. Mr. Harish Salve, learned senior counsel, appearing
on behalf of Cll, while supporting the Reference, fervently urged
that the contention that the Reference deserves to be returned
unanswered due to the absence of the use of the word 'doubt'
in the recitals of the Reference, is untenable. According to the E
learned counsel, under Article 143(1), the President can seek
an opinion on any question of law or fact that has arisen, or is
likely to arise, which is of such a nature and such public
importance that it is expedient to seek the opinion of this Court.
There is no additional condition that there should be any 'doubt' F
in the mind of the President. It was submitted by the learned
counsel that the need for a Presidential reference may also
arise to impart certainty to certain questions of law or fact which
are of such a nature and of such moment as to warrant seeking
opinion of this Court. It was urged that a pedantic interpretation, G
by which a Presidential reference would be declined on
semantic considerations, such as the failure to use the word
'doubt' in the reference, should be eschewed.
16. Learned counsel contended that at the stage of making
a reference, it is the satisfaction of the President in relation to H
370 SUPREME COURT REPORTS [2012] 9 S.C.R.
A the nature of the question and its importance that is relevant.
As a matter of comity of institutions, this Court has always
declined to go behind the reasons that prevailed upon the
President to make a reference and its bona fides.
Nevertheless, this Court always has the discretion not to answer
B any such reference or the questions raised therein for good
reasons. It was stressed that since this Court does not sit in
review over the satisfaction of the President, the question of
jurisdiction and of maintainability does not arise.
17. Learned counsel also argued that the premise that
C earlier judgments of this Court are binding in reference
jurisdiction, and thus any reference, which impinges upon an
earlier judgment should be returned unanswered, is equally
fallacious. It was argued that the principle of stare decisis and
the doctrine of precedent are generally accepted and followed
D as rules of judicial discipline and not jurisdictional fetters and,
therefore, this Court is not prevented from re-examining the
correctness of an earlier decision. On the contrary, the
precedents support the proposition that this Court can, when
exercising its jurisdiction under Article 143(1 ), examine the
E correctness of past precedents. According to the learned
counsel, in Keshav Singh, this Court did examine the
correctness of the judgment in Pandit M.S.M. Sharma Vs. Shri
Sri Krishna Sinha & Ors. 12 (hereinafter referred to as
"Sharma"). Explaining the ratio of the decision in Cauvery-11,
F learned counsel submitted that it is clear beyond any pale of
doubt that the said pronouncement does not lay down, as an
abstract proposition of law, that under Article 143(1 ), this Court
cannot consider the correctness of any precedent. What it lays
down is that once a lis between the parties is decided, the
G operative decree can only be opened by way of a review.
According to the learned counsel, overruling a judgment - as a
precedent - does not tantamount to reopening the decree.
18. Arguing on similar lines, Mr. C.A. Sundaram, learned
H 12. [1959) Supp. 1 S.C.R. 806.
RE: SPECIAL REFERENCE N0.1 OF 2012 371
[O.K. JAIN, J.]
senior counsel appearing on behalf of FICCI, contended that if A
the observations in the 2G Case are read as applying to all
natural resources and not limited to spectrum, it woulp
tantamount to de facto policy formulation by the Court, which
is beyond the scope of judicial review. He also took a nuanced
stance on this Court's power of reconsideration over its B
precedents. It was submitted that a precedent can be sliced
into two parts viz. the decision or operative part of an order or
decree pertaining to the inter partes dispute and the ratio with
respect to the position of law; the former being beyond this
Court's powers of review once an earlier bench of this Court C
has pronounced an authoritative opinion on it, but not the latter.
He thus, urged that this Court does have the power to
reconsider the principles of law laid down in its previous
pronouncements even under Article 141.
19. Mr. Darius Khambata, learned Advocate General of D
Maharashtra, submitted that observations in the 2G Case were
made only with regard to spectrum thus, leaving it open to this
Court to examine the issue with regard to alienation of other
natural resources. It was urged that even if broader
observations were made with respect to all natural resources, E
it would still be open to this Court under Article 143(1) to say
otherwise. He also pointed to certain State legislations that
prescribe methods other than auction and thus, urged this Court
to answer the first question in the negative lest all those
legislations be deemed unconstitutional. F
20. Mr. Sunil Gupta, learned senior counsel, appearing on
behalf of the State of U.P., added that when Article 143(1) of
the Constitution unfolds a high prerogative of a constitutional
authority, namely, the President, to consult this Court on question
of law or fact, it contains a no less high prerogative of this Court G
to report to the President its opinion on the question referred,
either by making or declining to give an answer to the question.
In other words, according to the learned counsel, the issue of
a reference being maintainable at the instance of the President
is an issue different from the judicial power of this Court to H
372 SUPREME COURT REPORTS [2012) 9 S.C.R.
A answer or not to answer the question posed in the reference.
21. Mr. Ravindra Shrivastava, learned senior counsel
appearing on behalf of the State of Chhattisgarh, contended
that neither history supports nor reality warrants auction to be
a rule of disposal of all natural resources in all situations. He
8
referred to decisions of this Court that unambiguously strike a
just balance between considerations of power of the State and
duty towards public good, by leaving the choice of method of
allocation of natural resources to the State, as long as it
conforms to the requirements of Article 14. It was pleaded that
C the State be allowed the choice of methodology of allocation,
especially in cases where it intends to incentivize investments
and job creation in backward regions that would otherwise have
been left untouched by private players if resources were given
at market prices.
D
22. To sum up, the objections relating to the maintainability
of the Reference converge mainly on the following points: (i) the
foundational requirement for reference under Article 143(1) viz.
a genuine 'doubt' about questions of fact or law that the
E executive labours under, is absent; (ii) the filing and withdrawal
of a review petition whose recitals pertain to the 2G Case would
be an impediment in the exercise of discretion under Article
143(1); (iii) the language in which the Reference is couched
exhibits mala tides on the part of the Executive; (iv) in light of
F enunciation of law on the point in Cauvery II, entertaining a
Presidential reference on a subject matter, which has been
decided upon directly and with finality, is barred; (v) the present
Reference is an attempt to overturn the judgment of this Court
in the 2G Case, which is against the spirit of Article 143(1) of
the Constitution and (vi) the Executive is adopting the route of
G this Reference to wriggle out of the directions in the 2G Case
as the same are inconvenient for them to follow.
DISCUSSION:
H 23. Before we evaluate the rival stands on the
RE: SPECIAL REFERENCE N0.1 OF 2012 373
[D.K. JAIN, J.]
maintainability of the Reference, it would be necessary to A
examine the scope and breadth of Article 143 of the
Constitution, which reads thus:
"143. Power of President to consult Supreme Court.-
(1) If at any time it appears to the President that a question 8
of law or fact has arisen, or is likely to arise, which is of
such a nature and of such public importance that it is
expedient to obtain the opinion of the Supreme Court upon
it, he may refer the question to that Court for consideration
and the Court may, after such hearing as it thinks fit, report C
to the President its opinion thereon.
(2) The President may, notwithstanding anything in the
proviso to article 131, refer a dispute of the kind mentioned
in the said proviso to the Supr.eme Court for opinion and
the Supreme Court shall, after such hearing as it thinks fit, D
report to the President its opinion thereon."
A bare reading at the Article would show that it is couched in
broad terms. It is plain from the language of Article 143(1) that
it is not necessary that the question on which the opinion of the E
Supreme Court is sought must have actually arisen. The
President can make a reference under the said Article even at
an anterior stage, namely, at the stage when the President is
satisfied that the question is likely to arise. The satisfaction
whether the question meets the pre-requisites of Article 143(1) F
is essentially a matter for the President to decide. Upon receipt
of a reference under Article 143(1 ), the function of this Court is
to consider the reference; the question(s) on which the
President has made the reference, on the facts as stated in the
reference and report to the President its opinion thereon.
G
24. Nevertheless, the usage of the word "may" in the latter
part of Article 1430) implies that this Court is not bound to
render advisory opinion in every reference and may refuse to
express its opinion for strong, compelling and good reasons.
In Keshav Singh, highlighting the difference in the phraseology H
374 SUPREME COURT REPORTS [2012) 9 S.C.R.
A used in clauses (1) and (2) of Article 143, P.B. Gajendragadkar,
C.J., speaking for the majority, held as follows:
" ... whereas in the case of reference made under Article
143 (2) it is the constitutional obligation of this Court to
make a report on that reference embodying its advisory
B
opinion, in a reference made under Article 143 (1) there
is no such obligation. In dealing with this latter class of
reference, it is open to this Court to consider whether it
should make a report to the President giving its advisory
opinion on the questions under reference."
c
25. Further, even in an earlier judgment in In re: A/location
of Lands and Buildings Situate in a Chief Commissioner's
Province and in the matter of Reference by the Governo:--
Genera/ under S. 213, Government of India Act, 1935 13, the
D Federal Court had said that even though the Court is within its
authority to refuse to answer a question on a reference, it must
be unwilling to exercise its power of refusal "except for good
reasons." A similar phrase was used in In Re: The Kera/a
Education Bill, 1957 (supra) when this Court observed that
E opinion on a reference under Article 143(1 ), may be declined
in a "proper case" and "for good reasons". In Dr. M. Ismail
Faruqui & Ors. (supra), it was added that a reference may not
be answered when the Court is not competent to decide the
question which is based on expert evidence or is a political one.
F 26. Having noted the relevant contours of Article 143(1) of
the Constitution, we may now deal with the objections to the
maintainability of the Reference.
27. There is no denying the fact that in the entire Reference
G the word 'doubt' has not been used. It is also true that in all
previous references, noted in para 5 (supra), it had been
specifically mentioned that doubts had arisen about various
issues. Nonetheless, the fact remains that Article 143(1) does
H 13. A.1.R. (30) 1943 FC 13.
RE: SPECIAL REFERENCE N0.1 OF 2012 375
[D.K. JAIN, J.]
not use the term 'doubt'. No specific format has been provided A
in any of the Schedules of the Constitution as to how a reference
is to be drawn. The use of the word 'doubt' in a reference is
also not a constitutional command or mandate. Needless to
emphasise that the expression, 'doubt', which refers to a state
of uncertainty, may be with regard to a fact or a principle. In P. B
Ramanatha Aiyar's, The Major Law Lexicon, 4th Edition, the
words 'doubt' and 'question' have been dealt with in the following
manner:-
"Doubt, Question. These terms express the act of the mind C
in staying its decision. Doubt lies altogether in the mind; it
is a less active feeling than question; by the former we
merely suspend decision; by the latter we actually demand
proofs in order to assist us in deciding. We may doubt in
silence. We cannot question without expressing it directly
or indirectly. He who suggests doubts does it with caution: D
he who makes a question throws in difficuJties with a
degree of confidence. We doubt the truth of a position; we
question the veracity of an author. (Crabb.)"
As per the Concise Oxford Dictionary (Tenth Edition), 'question' E
means : "a doubt; the raising of a doubt or objection; a problem
requiring solution".
In Black's Law Dictionary 'doubt', as a verb, has been defined
as follows:
F
"To question or hold questionable."
The word 'doubt', as a noun, has been described as under:-
"Uncertainty of mind; the absence of a settled opinion or
conviction; the attitude of mind towards the acceptance of G
or belief in a proposition, theory, or statement, in which the
judgment is not at rest but inclines alternately to either side."
28. The afore-extracted recitals of the instant Reference
state that in the current circumstances, certain questions of law H
376 SUPREME COURT REPORTS [2012] 9 S.C.R.
A with far reaching national and international implications have
arisen, including in relation to conduct of the auction and the
regulation of the telecommunications industry in accordance
with the judgment (2G Case) that may affect the flow of FOi in
the telecom industry and otherwise in other sectors into this
B country. Thereafter, it is also stated that questions of law that
have arisen are of great public importance and are of far
reaching consequences for the development of the country and
hence, it is thought expedient to obtain the opinion of this Court.
Question No.1 of the reference reads as follows:-
c "Whether the only permissible method for disposal of all
natural resources across all sectors and in all
circumstances is by the conduct of auctions?"
29. At this juncture, reference may profitably be made to
o the decision in In Re: The Special Courts Bill, 1978 (supra),
an opinion by a Bench of seven learned Judges, wherein it was
observed as follows:
"27. We were, at one stage of the arguments, so much
exercised over the undefined breadth of the reference that
E
we were considering seriously whether in the
circumstances it was not advisable to return the reference
unanswered. But the written briefs filed by the parties and
the oral arguments advanced before us have, by their
fullness and ability, helped to narrow down the legal
F controversies surrounding the Bill and to crystallize the
issues which arise for our consideration. We propose to
limit our opinion to the points specifically raised before us.
It will be convenient to indicate at this stage what those
points are."
G
While expressing the hope that, in future, specific questions
would be framed for the opinion of this Court, Y.V. Chandrachud
(as his Lordship then was), speaking for the majority, said:
"30. We hope that in future, whenever a reference is made
H to this Court under Article 143 of the Constitution, care will
RE: SPECIAL REFERENCE N0.1 OF 2012 377
[D.K. JAIN, J.]
be taken to frame specific questions for the opinion of the A
Court. Fortunately, it has been possible in the instant
reference to consider specific questions as being
comprehended within the terms of the reference but the
risk that a vague and general reference may be returned
unanswered is real and ought to engage the attention of B
those whose duty it is to frame the reference. Were the
Bill not as short as it is, it would have been difficult to infuse
into the reference the comprehension of the two points
mentioned by us above and which we propose to decide.
A long Bill would have presented to us a rambling task in c
the absence of reference on specific points, rendering it
impossible to formulate succinctly the nature of
constitutional challenge to the provisions of the Bill."
30. From the afore-extracted paragraphs, three broad
principles emerge: (i) a reference should not be vague, general D
and undefined, (ii) this Court can go through the written briefs
and arguments to narrow down the legal controversies, and (iii)
when the question becomes unspecific and incomprehensible,
the risk of returning the reference unanswered arises. In Keshav
Singh, this Court while dealing with the validity of the reference, E
-referred to earlier decisions and opined as follows:
" ... It would thus be seen that the questions so far referred
by the President for the Advisory opinion of this Court
under Article 143(1) do not disclose a uniform pattern and F
that is quite clearly consistent with the broad and wide
words used in Article 143(1)."
31. An analysis of the afore-noted cases, indicates that
neither has a particular format been prescribed nor any specific
pattern been followed in framing references. The first principle G
relates to the 'form' and the second pertains to the 'pattern of
content'. Holistically understood, on the ground of form or
pattern alone, a reference is not to be returned unanswered. It
requires appropriate analysis, understanding and appreciation
of the content or the issue on which doubt is expressed, H
378 SUPREME COURT REPORTS [2012] 9 S.C.R.
A keeping in view the concept of constitutional responsibility,
juridical propriety and judicial discretion.
32. Thus, we find it· difficult to accept the stand that use of
the word 'doubt' is a necessary condition for a reference to be
maintainable under Article 143(1 ). That apart, in our view,
8
question No.1, quoted above, is neither vague nor general or
unspecific, but is in the realm of comprehension which is
relatable to a question of law. It expresses a 'doubt' and seeks
the opinion of the Court on that question, besides others.
C 33. In so far as the impact of filing and withdrawal of the
review application by the Union of India, against the decision
in the 2G Case on the maintainability of the instant Reference
is concerned, it is a matter of record that in the review petition,
certain aspects of the grounds for review which have been
D stated in the recitals of the Reference as well as in some
questions, were highlighted. However, there is a gulf of
difference between the jurisdiction exercised by this Court in a
review and the discretion exercised in answering a reference
under Article 143(1) of the Constitution. A review is basically
E guided by the well-settled principles for review of a judgment
and a decree or order passed inter se parties. The Court in
exercise of power of review may entertain the review under the
acceptable and settled parameters. But, when an opinion of this
Court is sought by the Executive taking recourse to a
F constitutional power, needless to say, the same stands on a
different footing altogether. A review is lis specific and the rights
of the parties to the controversy are dealt with therein, whereas
a reference is answered keeping in view the terms of the
reference and scrutinising whether the same satisfies the
G requirements inherent in the language employed under Article
143(1) of the Constitution. In our view, therefore, merely
because a review had been filed and withdrawn and in the
recital the narration pertains to the said case, the same would
. not be an embargo or impediment for exercise of discretion to
answer the Reference.
H
RE: SPECIAL REFERENCE N0.1 OF 2012 379
[D.K. JAIN, J.]
34. As far as the allegation of mala fide is concerned, it is A
trite that this Court is neither required to go into the truth or
otherwise of the facts of the recitals nor can it go into the
question of bona tides or otherwise of the authority making a
reference. [See: In Re: Presidential Poll (supra)]. To put it
differently, the constitutional power to seek opinion of this Court B
rests with the President. The only discretion this Court has is
either to answer the reference or respectfully decline to send a
report to the President. Therefore, the challenge on the ground
of mala fide, as raised, is unsustainable.
35. The principal objection to the maintainability of the
c
Reference is that it is an indirect endeavour to unsettle and
overturn the verdict in the 2G Case, which is absolutely
impermissible. The stand of the objectors is that the 2G Case
is an authoritative precedent in respect of the principle or
proposition of law that all natural resources are to be disposed D
of by way of public auction and, therefore, the Reference should
be held as not maintainable. Emphasis in this behalf was on
paragraphs 85 and 94 to 96 of the said judgment. In support
of the proposition, heavy reliance was placed on Cauvery II.
E
36. At the outset, we may note that the learned Attorney
General has more than once stated that the Government of India
is not questioning the correctness of the directions in the 2G
Case, in so far as the allocation of spectrum is concerned, and
in fact the Government is in the process of implementing the F
same, in letter and spirit. Therefore, in the light of the said
statement, we feel that it would be unnecessary to comment on
the submission that the Reference is an attempt to get an
opinion to unsettle the decision and directions of this Court in
the 2G Case. Nevertheless, since in support of the aforesaid G
submission, the opinion of this Court in Cauvery II has been
referred to and relied upon in extenso, it would be appropriate
to decipher the true ratio of Cauvery II, the lynchpin of the
opposition to maintainability of the present Reference.
37. Cauvery II was preceded by State of Tamil Nadu Vs. H
380 SUPREME COURT REPORTS [2012] 9 S.C.R.
A State of Karnataka & Ors. 14 (hereinafter referred to as "Cauvery
I"), which dwelled on the issue whether the Cauvery Water
Disputes Tribunal (for short "the Tribunal") had the power to
grant interim relief. In that case, applications filed by the State
of Tamil Nadu for urgent interim reliefs were rejected by the
B Tribunal on the ground that they were not maintainable. This
order was challenged, resulting in the judgment dated 26th April,
1991 by this Court, where it was held as follows:
"15. Thus, we hold that this Court is the ultimate interpreter
of the provisions of the Interstate Water Disputes Act,
c 1956 and has an authority to decide the limits, powers and
the jurisdiction of the Tribunal constituted under the Act.
This Court has not only the power but obligation to decide
as to whether the Tribunal has any jurisdiction or not under
the Act, to entertain any interim application till it finally
D decides the dispute referred to it. .. "
38. The Tribunal had ruled that since it was not like other
courts with inherent powers to grant interim relief, only in case
{he Central Government referred a case for interim relief to it,
E would it have the jurisdiction to grant the same. lnter-alia, the
Court observed that the Tribunal was wrong in holding that the
Central Government had not made any reference for granting
any interim relief, and concluded that the interim reliefs prayed
for clearly fell within the purview of the dispute referred by the
F Central Government. Accordingly, the appeals preferred by the
State of Tamil Nadu were allowed and the Tribunal was directed
to decide the applications for interim relief. However, the Court
did not decide the larger question of whether a Tribunal,
constituted under the Interstate Water Disputes Act, 1956 had
G the power to grant an interim relief, though the answer to the
same may be deduced from the final direction.
39. In pursuance of these directions, the Tribunal decided
the application and vide its order dated 25th June, 1991,
H 14. 1991 Supp (1) sec 240.
RE: SPECIAL REFERENCE N0.1 OF 2012 381
[D.K. JAIN, J.]
proceeded to issue certain directions to the State of Karnataka. A
Thereafter, on 25th July 1991, the Governor of Karnataka
issued an Ordinance named "The Karnataka Cauvery Basin
Irrigation Protection Ordinance, 1991 ". Hot on the heels of the
Ordinarice, the State of Karnataka also instituted a suit under
Article 131 of the Constitution against the State of Tamil Nadu B
for a declaration that the Tribunal's order granting interim relief
was without jurisdiction and, therefore, nuli and void, etc. The
Ordinance was replaced by Act 27 of 1991. In the context of
these developments, the President made a reference to this
Court under Article 143(1) of the Constitution, posing three c
questions for opinion. The third question of the reference,
relevant for the present Reference, was :-
"3. Whether a Water Disputes Tribunal constituted under
the Act is competent to grant any interim relief to the parties
to the dispute." D
However, while dealing with the reference in Cauvery II, the
Court split the question, viz., whether a Water Disputes Tribunal
constituted under the Act is competent to grant any interim relief
into two parts: (i) when a reference for grant of interim relief is E
made to the Tribunal, and (ii) when no such reference is made
to it. It was contended by the States of Karnataka and Kerala
that if the Tribunal did not have power to grant interim relief, the
Central Government would be incompetent to make a
reference for the purpose in the first place and the Tribunal in F
turn would have no jurisdiction to entertain such reference, if
made. Dealing with the said submission, after making a
reference to the earlier order, this Court observed that once the
Central Government had made a reference to the Tribunal for
consideration of the claim for interim relief, prayed for by the G
State of Tamil Nadu, the Tribunal had jurisdiction to consider
the said request being a part of the reference itself. Implicit in
the said decision was the finding that the subject of interim relief
was a matter connected with or relevant to the water dispute
within the meaning of Section 5(1) of the said Act. It was held
H
382 SUPREME COURT REPORTS [2012] 9 S.C.R.
A that the Central Government could refer the matter for granting
interim relief to the Tribunal for adjudication.
40. The consequence of the Court in coming to the
conclusion. while replying to the third question was that the
Tribunal did not have the jurisdiction to make an interim award
8
or grant interim relief, would have not only resulted in the Court
overruling its earlier decision between the two contending
parties i.e. the two States, but it would have also then required
the Court to declare the order of the Tribunal as being without
jurisdiction. The Court therefore, said :
c
"83 ... Although this Court by the said decision has kept
open the question, viz., whether the Tribunal has incidental,
ancillary, inherent or implied power to grant the interim
relief when no reference for granf of such relief is made to
D it, it has in terms concluded the second part of the question.
We cannot, therefore, countenance a situation whereby
question 3 and for that matter questions 1 and 2 may be
so construed as to invite our opinion on the said decision
of this Court. That would obviously be tantamount to our
E sitting in appeal on the said decision which it is
impermissible for us to do even in adjudicatory jurisdiction.
Nor is it competent for the President to invest us with an
appellate jurisdiction over the said decision through a
Reference under Article 143 of the Constitution."
F These observations would suggest that the Court declined to
construe Article 143 as a power any different from its
adjudicative powers and for that reason, said that what could
not be done in the adjudicatory process would equally not be
achieved through the process of a reference.
G
41. The expression, "sitting in appeal" was accurately
used. An appellate court vacates the decree (or writ, order or
direction) of the lower court when it allows an appeal - which is
what this Court was invited to do in Cauvery I. This Court, in
H that appeal decided earlier, held that the Tribunal had the
RE: SPECIAL REFERENCE N0.1 OF 2012 383
[D.K. JAIN, J.]
jurisdiction to pass the interim order sought by the State of Tamil A
Nadu. To nullify the interim order passed by the Tribunal,
pursuant to a direction of the Supreme Court, on the ground
that it was without jurisdiction, would necessarily require
vacating the direction of the Supreme Court to the Tribunal to
exercise its jurisdiction and decide the interim matter. Para 85 B
of that decision puts the matter beyond any pale of doubt:
"85 ... In the first instance, the language of clause (1) of
Article 143 far from supporting Shri Nariman's contention
is opposed to it. The said clause empowers the President c
to refer for this Court's opinion a question of law or fact
which has arisen or is likely to arise. When this Court in
its adjudicatory jurisdiction pronounces its authoritative
opinion on a question of law, it cannot be said that there
is any doubt about the question of law or the same is res
0
integra so as to require the President to know what the true
position of law on the question is. The decision of this Court
on a question of law is binding on all courts and authorities.
Hence under the said clause the President can refer a
question of law only when this Court has not decided it.
E
Secondly, a decision given by this Court can be reviewed
only under Article 137 read with Rule 1 of Order 40 of the
Supreme Court Rules, 1966 and on the conditions
mentioned therein. When, further, this Court overrules the
view of law expressed by it in an earlier case, it does not
do so sitting in appeal and exercising an appellate F
jurisdiction over the earlier decision. It does so in exercise
of its inherent power and only in exceptional circumstances
such as when the earlier decision is per incuriam or is
delivered in the absence of relevant or material facts or if
it is manifestly wrong and productive of public mischief. G
[See: Bengal Immunity Company Ltd. v. State of Bihar
(1955) 2 SCR 603). Under the Constitution such appellate
jurisdiction does not vest in this Court, nor can it be vested
in it by the President under Article 143. To accept Shri
H
384 SUPREME COURT REPORTS [2012] 9 S.C.R.
A Nariman's contention would mean that the advisory
jurisdiction under Article 143 is also an appellate
jurisdiction of this Court over its own decision between the
same parties and the executive has a power to ask this
Court to revise its decision. If such power is read in Article
B 143 it would be a serious inroad into the independence
of judiciary."
42. Eventually, the reference was answered in respect of
question No.3 in the following terms:-
"Question No.3: (i) A Water Disputes Tribunal
constituted under the Act is competent to grant any interim
relief to the parties to the dispute when a reference for such
relief is made by the Central Government;
D (ii) whether the Tribunal has power to grant interim
relief when no reference is made by the Central
Government for such relief is a question which does not
arise in the facts and circumstances under which the
Reference is made. Hence we do not deem it necessary
to answer the same."
43. The main emphasis of Mr. Soli Sorabjee was on the
second part of paragraph 85, which, according to him, prohibits
this Court from overruling a view expressed by it previously
under Article 143(1). We are not persuaded to agree with the
r= learned senior counsel. The paragraph has to be read carefully.
Sawant J. first considers the case of a "decision" of this Court
whereas in the subsequent sentence he considers a "view of
law" expressed by the Court, and attempts to explain the
difference between the approaches to these two situations.
t3 These words are sometimes used interchangeably but not
hereinabove. We believe that Justice Sawant consciously draws
a difference between the two by using the words 'When, further,
this Court overrules the view of law... " after discussing the case
of a "decision".
1-1
RE: SPECIAL REFERENCE N0.1 OF 2012 385
[D.K. JAIN, J.]
44. Black's Law Dictionary defines a "decision" as "a A
determination arrived at after consideration of facts, and, in
legal context, law"; an "opinion" as "the statement by a judge
or court of the decision reached in regard to a cause tried or
argued before them, expounding the law as applied to the case,
and detailing the reasons upon which the judgment is based"; B
and explains the difference between a "decision" and "opinion"
as follows:
"Decision is not necessarily synonymous with 'opinion'. A
decision of the Court is its judgment; the opinion is the C
reasons given for that judgment, or the expression of the
views of the judge."
45. Therefore, references in Para 85 to "decision" and
"view of law" must be severed from each other. The learned
Judge observes that in case of a decision, the appellate D
structure is exhausted after a pronouncement by the Supreme
Court. Therefore, the only option left to the parties is of review
or curative jurisdiction (a remedy carved out in the judgment in
Rupa Ashok Hurra Vs. Ash.Ok Hurra & Anr. 15 ). After the
exercise of those limited options, the concerned parties have E
absolutely no relief with regard to the dispute; it is considered
settled for eternity in the eyes of the law. However what is not
eternal and still malleable in the eyes of law is the opinion or
"view of law'' pronounced in the course of reaching the decision.
Justice Sawant clarifies that unlike this Court's appellate power, F
its power to overrule a previous precedent is an outcon:e of
its inherent power when he says, " ... it does not do so sitting in
appeal and exercising an appellate jurisdiction over the earlier
decision. It does so in exercise of its inherent power and only
in exceptional circumstances .... " This Court has pointed out the G
difference between the two expressions in Rupa Ashok Hurra
(supra), in the following words:
"24. There is no gainsaying that the Supreme Court is the
1s. (2002) 4 sec 388. H
386 SUPREME COURT REPORTS [2012] 9 S.C.R.
A court of last resort - the final court on questions both of fact
and of law including constitutional law. The law declared
by this Court is the law of the land; it is precedent for itself
and for all the courts/tribunals and authorities in India. In a
judgment there will be declaration of law and its application
B to the facts of the case to render a decision on the dispute
between the parties to the lis. It is necessary to bear in
mind that the principles in regard to the highest court
departing from its binding precedent are different from the
grounds on which a final judgment between the parties, can
c be reconsidered. Here, we are mainly concerned with the
latter. However, when reconsideration of a judgment of this
Court is sought the finality attached both to the law declared
as well as to the decision made in. the case, is normally
brought under challenge ... "
D Therefore, there are two limitations - one jurisdictional and the
other self-imposed.
46. The first limitation is that a decision of this Court can
be reviewed only under Article 137 or a Curative Petition and
E in no other way. It was in this context that in para 85 of Cauvery
II, this Court had stated that the President can refer a question
of law when this Court has not decided it. Mr. Harish Salve,
learned senior counsel, is right when he argues that once a lis
between parties is decided, the operative decree can only be
F opened in review. Overruling the judgment - as a precedent -
does not reopen the decree.
47. The second limitation, a self imposed rule of judicial
discipline, was that overruling the opinion of the Court on a legal
issue does not constitute sitting in appeal, but is done only in
G exceptional circumstances, such as when the earlier decision
is per incuriam or is delivered in the absence of relevant or
material facts or if it is manifestly wrong and capable of causing
public mischief. For this proposition, the Court relied upon the
judgment in the Bengal Immunity case (su!')ra) wherein it was
H held that when Article 141 lays down that the law declared by
RE: SPECIAL REFERENCE N0.1 OF 2012 387
[D.K. JAIN, J.)
this Court shall be binding on all courts within the territory of A
India, it quite obviously refers to courts other than this Court;
and t.hat the Court would normally follow past precedents save
and except where it was necessary to reconsider the
correctness of law laid down in that judgment. In fact, the
overruling of a principle of law is not an outcome of appellate B
jurisdiction but a consequence of its inherent power. This
inherent power can be exercised as long as a previous decree
vis-a-vis lis inter partes is not affected. It is the attempt to overturn
the decision of a previous case that is problematic which is why
the Court observes that "under the Constitution such appellate C
jurisdiction does not vest in this Court, nor can it be vested in it
by the President under Article 143."
48. Therefore, the controversy in Cauvery II was covered
by the decision rendered by this Court in Cauvery I between
the parties and the decision operated as res judicata and D
hence, it was opined that discretion under Article 143(1) could
not be exercised. It has also been observed that this Court had
analysed the relevant provisions of the Inter-State Water
Disputes Act, 1956 and thereafter had come to the conclusion
that the Tribunal had jurisdiction to grant interim relief if the E
question of granting interim relief formed part of the reference.
On this bedrock it was held that the decision operated as res
judicata. It is, therefore, manifest from Cauvery II that the Court
was clearly not opposed to clarifying the ratio of a previous
judgment in Cauvery I, in the course of an advisory jurjSdiction. F.
Afore-extracted para 85 of Cauvery 11, restricts this Court's
advisory jurisdiction on the limited point of overturning a decided
issue vis-a-vis a 'dispute' or lis inter partes.
49. Finally a seven Judge Bench of this Court has clearly
held that this Court, under Article 143(1), does have the power G
to overrule a previous view delivered by it. Justice
Chandrachud, C.J. in In re: The Special Courts Bill (supra)
held:
H
388 SUPREME COURT REPORTS [2012] 9 S.C.R.
A "101 ... We are inclined to the view that though it is always
open to this Court to re-examine the question already
decided by it and to overrule, if necessary, the view earlier
taken by it, insofar as all other courts in the territory of India
are concerned they ought to be bound by the view
B expressed by this Court even in the exercise of its advisory
jurisdiction under Article 143(1) of the Constitution."
50. There is a catena of pronouncements in which this
Court has either explained, clarified or read down the ratio of
C previous judgments. In the very first reference, In Re: Delhi
Laws Act, 1912 (supra), the reference was made by reason of
a judgment of the Federal Court in Jatindra Nath Gupta Vs.
The Province of Bihar & Ors. 16 . The background of that
reference was explained by Mukherjea, J. as under:
D "The necessity of seeking the advisory opinion of this Court
is stated to have arisen from the fact that because of the
decision of the Federal Court in Jatindra Nath Gupta v.
The Province of Bihar, which held the proviso to sub-
section (3) of Section 1 of the Bihar Maintenance of Public
E Order Act, 1947, ultra vires the Bihar Provincial
Legislature, by reason of its amounting to a delegation of
its legislative powers to an extraneous authority, doubts
have arisen regarding the validity of the three legislative
provisions mentioned above, the legality of the first and the
F second being actually called in question in certain judicial
proceedings which are pending before some of the High
Courts in India."
Justice Das in the same opinion, while noting that reliance was
placed by learned counsel for the interveners on the judgment
G of the Federal Court in Jatindra Nath Gupta (supra), recorded
that the learned Attorney General had strenuously challenged
the correctness of the decision of the majority of the Federal
Court in that case. lnter-alia, observing that the reference was
H 16. [1949-50] F.C.R. 595.
RE: SPECIAL REFERENCE N0.1 OF 2012 389
[D.K. JAIN, J.]
in a way occasioned by that decision, the learned Judge held A
as follows:
"I feel bound to say, with the utmost humility and for
reasons given already, that the observations of the majority
of the Federal Court in that case went too far and, in
8
agreement with the learned Attorney-General, I am unable
to accept them as correct exposition of the principles
relating to the delegation of legislative power."
51. In this context, it would be beneficial to refer to Keshav
Singh's case. In the said case, a reference was made by the C
President which fundamentally pertained to the privileges of the
Legislative Assembly and exercise of jurisdiction by a Bench
of the High Court. The High Court entertained a writ petition
under Article 226 of the Constitution, challenging the decision
of the Assembly committing one Keshav Singh, who was not D
one of its members, to prison for its contempt. The issue was
whether by entertaining the writ petition, the Judges of the High
Court were in contempt of the Legislature for infringement of
its privileges and immunities. For the same, this Court
proceeded to construe the relevant provisions contained in E
Article 194(3) and its harmonization with other Articles of the
Constitution, especially Articles 19(1 )(a), 21 & 22. In that context,
the decision in "Sharma" (supra) came up for consideration.
One of the questions that arose in Sharma's case was the
impact of Articles 19(1)(a) and 21 on the provisions contained F
in the latter part of Article 194(3). The majority view was that
the privilege in question was subsisting at the relevant time and
must, therefore, deemed to be included under the latter part of
Article 194(3). It was held that Article 19(1 )(a) did not apply
under the rule of harmonious construction, where Article G
19(1 )(a) was in direct conflict with Article 194(3). The particular
provision in the latter Article would prevail over the general
provision contained in the former. It was further held that though
Article 21 applied, it had not been contravened. The minority
view, on the other hand, held that the privilege in question had
H
390 SUPREME COURT REPORTS [2012) 9 S.C.R.
A not been established; even assuming the same was established
and it was to be included in the latter part of Article 194(3), yet
it must be controlled by Article 19(1)(a) on the ground that
Fundamental Rights guaranteed by Part Ill of the Constitution
were of paramount importance and must prevail over a
B provision like the one contained in Article 194(3) which may be
inconsistent with them. The majority decision also commented
on the decision in Gunupati Keshavram Reddy Vs. Nafisul
Hasan & the State of UP. 17 and observed that the said
decision was based entirely on a concession and could not,
c therefore, be deemed to be a considered decision of this Court.
52. The decision in Keshavram Reddy (supra) dealt with
the applicability of Article 22(2) to a case falling under the latter
part of Article 194(3). It is worth noting that the minority opinion
of Sharma treated Keshavram Reddy, as expressing a
D considered opinion, which was binding on the Court. In Keshav
Singh it was opined that in Sharma's case, the majority
decision held in terms that Article 21 was applicable to the
contents of Article 194(3), but on merits, it came to the
conclusion that the alleged contravention had not been proved.
E Commenting on the minority view it was opined that it was
unnecessary to consider whether Article 21 as such applied
because the said view treated all the Fundamental Rights
guaranteed by Part Ill as paramount, and therefore, each one
of them could control the provisions of Article 194(3).
F
53. At that juncture, the Bench stated that in the case of
Sharma, contentions urged by the petitioner did not raise a
general issue as to the relevance and applicabili~ of all the
fundamental rights guaranteed by Part Ill at all. The
contravention of only two Articles was pleaded and they were
G Articles 19(1 )(a) and 21. Strictly speaking, it was, therefore,
unnecessary to consider the larger issue as to whether the latter
part of Article 194(3) was subject to the fundamental rights in
general, and indeed, even on the majority view it could not be
H 17. AIR 1954 SC 636.
RE: SPECIAL REFERENCE N0.1 OF 2012 391
[D.K. JAIN, J.]
said that the said view excluded the application of all A
fundamental rights, for the obvious and simple reason that
Article 21 was held to be applicable and the merits of the
petitioner's arguments about its alleged contravention in his
case were examined and rejected. Therefore, it was not right
to read the majority decision as laying down a general B
proposition that whenever there is a conflict between the
provisions of the latter part of Article 194(3) and any of the
provisions of the fundamental rights guaranteed by Part 111, the
latter must always yield to the former. It was further observed
that the majority decision had incidentally commented on the c
decision in Keshavram Reddy's case (supra). Apart from that
there was no controversy about the applicability of Article 22
in that case, and, therefore, the comment made by the majority
judgment on the earlier decision was partly not accurate. Their
Lordships adverted to the facts in Sharma's case wherein the
0
majority judgment had observed that it "proceeded entirely on
a concession of counsel and cannot be regarded as a
considered opinion on the subject." After so stating, the Bench
opined thus:
" ... There is no doubt that the first part of this comment is E
not accurate. A concession was made by the Attorney-
General not on a point of law which was decided by the
Court, but on a point of fact; and so, this part of the
comment cannot strictly be said to be justified. It is,
however, true that there is no discussion about the merits F
of the contention raised on behalf of Mr. Mistry and to that
extent, it may have been permissible to the majority
judgment to say that it was not a considered opinion of the
Court. But, as we have already pointed out, it was hardly
necessary for the majority decision to deal with the point G
pertaining to the.applicability of Article 22(2), because that
point did not arise in the proceedings before the Court in
Pandit Sharma's case. That is why we wish to make it clear
that the obiter observations made in the majority judgment
about the validity or correctness of the earlier decision of H
392 SUPREME COURT REPORTS [2012] 9 S.C.R.
A this Court in Gunupati Keshavram Reddy's case should not
be taken as having decided the point in question. In other
words, the question as to whether Article 22(2) would apply
to such a case may have to be considered by this Court if
ar,j when it becomes necessary to do so."
B
54. From the aforesaid decision it is clear that while
exercising jurisdiction under Article 143(1) of the Constitution
this Court can look into an earlier decision for the purpose of
whether the contentions urged in the previous decision did raise
C a general issue or not; whether it was necessary to consider
the larger issue that did not arise; and whether a general
proposition had been laid down. It has also been stated that
where no controversy arose with regard to applicability of a
particular facet of constitutional law, the comments made in a
decision could be treated as not accurate; and further it could
D be opined that in an earlier judgment there are certain obiter
observations.
55. Thus, in Keshav Singh, a seven-Judge Bench, while
entertaining a reference under Article 143(1), dealt with a
E previous decision in respect of its interpretation involving a
constitutional principle in respect of certain Articles, and
proceeded to opine that the view expressed in Shanna's case,
in relation to a proposition laid down in Keshavram Reddy's
case, was inaccurate.
F 56. At this stage, it is worthy to refer to Supreme Court
Advocates-on-Record Association and Ors. Vs. Union of
lndia 18• J.S. Verma, J., (as his Lordship then was) speaking for
the majority, apart from other conclusions relating to
appointment of Judges and the Chief Justices, while dealing
G with transfer, expressed thus:
"(8) Consent of the transferred Judge/Chief Justice is not
required for either the first or any subsequent transfer from
one High Court to another.
H 1a. (1993) 4 sec 441.
RE: SPECIAL REFERENCE N0.1 OF 2012 393
[D.K. JAIN, J.]
(9) Any transfer made on the recommendation of the Chief A
Justice of India is not to be deemed to be punitive, and
such transfer is not justiciable on any ground.
(10) In making all appointments and transfers, the norms
indicated must be followed. However, the same do not
8
confer any justiciable right in anyone.
(11) Only limited judicial review on the grounds specified
earlier is available in matters of appointments and
transfers."
c
As far as the ground of limited judicial review is concerned the
majority opined thus:
"481. These guidelines in the form of norms are not to be
construed as conferring any justiciable right in the
transferred Judge. Apart from the constitutional requirement D
of a transfer being made only on the recommendation of
the Chief Justice of India, the issue of transfer is not
justiciable on any other ground, including the reasons for
the transfer or their sufficiency. The opinion of the Chief
Justice of India formed in the manner indicated is sufficient E
safeguard and protection against any arbitrariness or bias,
as well as any erosion of the independence of the
judiciary.
482 .... Except on the ground of want of consultation with F
the named constitutional functionaries or lack of any
condition of eligibility in the case of an appointment, or of
a transfer being made without the recommendation of the
Chief Justice of India, these matters are not justiciable on
any other ground, including that of bias, which in any case G
is excluded by the element of plurality in the process of
decision-making."
57. In Special Reference No. 1 of 1998, (commonly
referred as the "Second Judges Case"), question No. 2 reads
as follows: H
394 SUPREME COURT REPORTS (2012] 9 S.C.R.
A "(2) Whether the transfer of Judges is judicially reviewable
in the light of the observation of the Supreme Court in the
aforesaid judgment that 'such transfer is not justiciable on
any ground' and its further observation that limited judicial
review is available in matters of transfer, and the extent and
8 scope of judicial review."
While answering the same, the Bench opined thus:
"37. It is to our mind imperative, given the gravity involved
in transferring High Court Judges, that the Chief Justice
c of India should obtain the views of the Chief Justice of the
High Court from which the proposed transfer is to be
effected as also the Chief Justice of the High Court to
which the transfer is to be effected. This is in accord with
the majority judgment in the Second Judges case which
D postulates consultation with the Chief Justice of another
High Court. The Chief Justice of India should also take into
account the views of one or more Supreme Court Judges
who are in a position to provide material which would
assist in the process of deciding whether or not a proposed
transfer should take place. These views should be
E
expressed in writing and should be considered by the
Chief Justice of India and the four seniormost puisne
Judges of the Supreme Court. These views and those of
each of the four seniormost puisne Judges should be
conveyed to the Government of India along with the
F
proposal of transfer. Unless the decision to transfer has
been taken in the manner aforestated, it is not decisive
and does not bind the Government of India."
In the conclusion their Lordships clearly state as follows:
G
"1. The expression "consultation with the Chief Justice of
India" in Articles 217(1) and 222(1) of the Constitution of
India requires consultation with a plurality of Judges in the
formation of the opinion of the Chief Justice of India. The
sole individual opinion of the Chief Justice of India does
H
••
RE: SPECIAL REFERENCE N0.1 OF 2012 395
[D.K. JAIN, J.]
A
not constitute "consultation" within the meaning of the said
articles.
2. The transfer of puisne Judges is judicially reviewable
only to this extent: that the recommendation that has been
made by the Chief Justice of India in this behalf has not B
been made in consultation with the four seniormost puisne
Judges of the Supreme Court and/or that the views of the
Chief Justice of the High Court from which the transfer is
to be effected and of the Chief Justice of the High Court
to which the transfer is to be effected have not been c
obtained."
58. From the aforesaid, it is demonstrable that while
entertaining the reference under Article 143(1 ), this Court had
analysed the principles enunciated in the earlier judgment and
0
also made certain modifications. The said modifications may
be stated as one of the mode or method of inclusion by way of
modification without changing the ratio decidendi. For the
purpose of validity of a reference, suffice it to say, dwelling upon
an earlier judgment is permissible. That apart, one cannot be
oblivious of the fact that the scope of limited judicial review, in E
the Second Judges Case, which otherwise is quite restricted,
was slightly expanded in the Court's opinion to the Presidential
reference.
59. It is of some interest to note that almost every F
reference, filed under Article 143(1), has witnessed challenge
as to its maintainability on one ground or the other, but all the
same, the references have been answered, except in Dr. M.
Ismail Faruqui & Ors. (supra), which was returned unanswered,
mainly on the ground that the reference did not serve a G
constitutional purpose.
60. From the aforesaid analysis, it is quite vivid that this
Court would respectfully decline to answer a reference if it is
improper, inadvisable and undesirable; or the questions
formulated have purely socio-economic or political reasons, H
396 SUPREME COURT REPORTS [2012] 9 S.C.R.
A which have no relation whatsoever with any of the provisions
of the Constitution or otherwise are of no constitutional
significance; or are incapable of being answered; or would not
subserve any purpose; or there is authoritative pronouncement
of this Court which has already decided the question referred.
B
61. In the case at hand, it is to be scrutinized whether the
2G Case is a decision which has dealt with and decided the
controversy encapsulated in question No. 1 or meets any of the
criteria mentioned above. As we perceive, the question involves
C interpretation of a constitutional principle inherent under Article
14 of the Constitution and it is of great public importance as it
deals with allocation/alienation/disposal/ distribution of natural
resources. Besides, the question whether the 2G Case is on
authoritative pronouncement in that regard, has to be looked
into and only then an opinion can be expressed. For the said
D purpose all other impediments do not remotely come into play
in the present Reference.
62. We are, therefore, of the view that as long as the
decision with respect to the allocation of spectrum licenses is
E untouched, this Court is within its jurisdiction to evaluate and
clarify the ratio of the judgment in the 2G Case. For the purpose
of this stage of argumentation, it needs little emphasis, that we
have the jurisdiction to clarify the ratio of the judgment in 2G
Case, irrespective of whether we actually choose to do so or
F not. Therefore, the fact that this Reference may require us to
say something different to what has been enunciated in the 2G
Case as a proposition of law, cannot strike at the root of the
maintainability of the Reference. Consequently, we reject the
preliminary objection and hold that this Reference is
G maintainable, notwithstanding its effect on the ratio of the 2G
Case, as long as the decision in that case qua lis inter partes
is left unaffected.
ON MERITS:
H 63. This leads us to the merits of the controversy disclosed
RE: SPECIAL REFERENCE N0.1 OF 2012 397
[D.K. JAIN, J.]
in the questions framed in the Reference for our advisory A
opinion.
64. As ;:ilready pointed out, the judgment in the 2G Case
triggered doubts about the validity of methods other than
'auction' for disposal of natural resources which, ultimately led
to the filing. of the present Reference. Therefore, before we B
proceed to answer question No.1, it is imperative to understand
what has been precisely stated in the 2G Case and decipher
the law declared in that case.
65. All the counsel agreed that paragraphs 94 to 96 in the
said decision are the repository of the ratio vis-a-vis disposal C
of natural resources in the 2G Case. On the one hand it was
argued that these paragraphs lay down, as a proposition of law,
that all natural resources across all sectors, and in all
circumstances are to be disposed of by way of public auction,
and on the other, it was urged that the observations therein D
were made only qua spectrum. Before examining the strength
of the rival stands, we may briefly recapitulate the principles that
govern the determination of the 'law declared' by a judgment
and its true ratio.
E
66. Article 141 of the Constitution lays down that the 'law
declared' by tie Supreme Court is binding upon all the courts
within the territory of India. The 'law declared' has to be
construed as a principle of law that emanates from a judgment,
or an interpretation of a law or judgment by the Supreme Court,
upon which, the case is decided. [See: Fida Hussain & Ors. F
Vs. Moradabad Development Authority & Anr. 19]. Hence, it
flows from the above that the 'law declared' is the principle
culled out on the reading of a judgment as a whole in light of
the questions raised, upon which the case is decided. [Also
see: Ambica Quarry Works Vs. State of Gujarat & Ors. 20 and G
Commissioner of Income Tax Vs. Sun Engineering Works (P)
Ltd. 21}. In other words, the 'law declared' in a judgment, which
19. (2011) 12 sec 615.
20. (1987) 1 sec 213.
21. (1992) 4 sec 363.
H
398 SUPREME COURT REPORTS [2012] 9 S.C.R.
A is binding upon courts, is the ratio decidendi of the judgment.
It is the essence of a decision and the principle upon which,
the case is decided, which has to be ascertained in relation to
the subject-matter of the decision.
67. Each case entails a different set of facts and a decision
B is a precedent on its own facts: not everything said by a Jud.ge
while giving a jl.idgmer1t can be ascribed precedental value. The
essence of a decision that binds the parties to the case is the
principle upon which the case is decided and for this reason,
it is important to analyse a decision and cull out from it, the ratio
C decidendi. In the matter of applying precedents, the erudite
Justice Benjamin Cardozo in "The Nature of a Judicial
Process", had said that "if the judge is to pronounce it wisely,
some principles of selection there must be to guide him along
all potential judgments that compete for recognition" and "almost
D invariably his first step is to examine and compare them;" "it is
a process of search, comparison and little more" and ought not
to be akin to matching "the colors of the case at hand against
the colors of many sample cases" because in that case "the
man who had the best card index of the cases would also be
E the wisest judge". Warning against comparing precedents with
matching colours of one case with another, he summarized the
process, in case the colours don't match, in the following wise
words:-
"lt is when the colors do not match, when the references
F in the index fail, when there is no decisive precedent, that
the serious business of the judge begins. He must then
fashion law for the litigants before him. In fashioning it for
them, he will be fashioning it for others. The classic
statement is Bacon's: "For many times, the things deduced
G to judgment may be meum and tuum, when the reason and
consequence thereof may trench to point of estate. The
sentence of today will make the right and wrong of
tomorrow."
H
RE: SPECIAL REFERENCE N0.1 OF 2012 399
[D.K. JAIN, J.]
68. With reference to the precedential value of decisions, A
in State of Orissa & Ors. Vs. Md. llliyas 22 this Court observed:
" ... According to the well-settled theory of precedents, every
decision contains three basic postulates: (i) findings of
material facts, direct and inferential. An inferential finding
of facts is the inference which the Judge draws from the B
direct, or perceptible facts; (ii) statements of the principles
of law applicable to the legal problems disclosed by the
facts; and (iii) judgment based on the combined effect of
the above. A decision is an authority for what it actually
decides. What is of the essence in a decision is its ratio C
and not every observation found therein nor what logically
flows from the various observations made in the
judgment. .. "
69. Recently, in Union of India Vs. Amrit Lal Manchanda
0
& Anr. 23, this Court has observed as follows:
" ... Observations of courts are neither to be read as
Euclid's theorems nor as provisions of the statute and that
too taken out of their context. These observations must be
read in the context in which they appear to have been E
stated. Judgments of courts are not to be construed as
statutes. To interpret words, phrases and provisions of a
statute, it may become necessary for Judges to embark
into lengthy discussions but the discussion is meant to
explain and not to define. Judges interpret statutes, they F
do not interpret judgments. They interpret words of
statutes; their words are not to be interpreted as statutes."
70. It is also important to read a judgment as a whole
keeping in mind that it is not an abstract academic discourse
with universal applicability, but heavily grounded in the facts and G
circumstances of the case. Every part of a judgment is
intricately linked to others constituting a larger whole and thus,
must be read keeping the logical thread intact. In this regard,
22. (2006) 1 sec 275.
23. (2004) 3 sec 75. H
400 SUPREME COURT REPORTS [2012] 9 S.C.R.
A in Islamic Academy of Education & Anr. Vs. State of
Kamataka & Ors. 24, the Court made the following observations:
"The ratio decidendi of a judgment has to be found out only
on reading the entire judgment. In fact, the ratio of the
judgment is what is set out. in the judgment itself. The
B answer to the question would necessarily have to be read
in the context of what is set out in the judgment and not in
isolation. In case of any doubt as regards any observations,
reasons and principles, the other part of the judgment has
to be looked into. By reading a line here and there from
C the judgment, one cannot find out the entire ratio decidendi
of the judgment."
71. The ratio of the 2G Case must, therefore, be
understood and appreciated in light of the above guiding
·principles.
D
72. In the 2G Case, the Bench framed five questions.
Questions No. (ii) and (v) pertain to the factual matrix and are
not relevant for settling the controversy at hand. The remaining
three questions are reproduced below:
E "(i) Whether the Government has the right to alienate,
transfer or distribute natural resources/national assets
otherwise than by following a fair and transparent method
consistent with the fundamentals of the equality clause
enshrined in the Constitution?
F (iii) Whether the exercise undertaken by DoT from
September 2007 to March 2008 for grant of UAS licences
to the private respondents in terms of the
recommendations made by TRAI is vitiated due to
arbitrariness and mala fides and is contrary to public
G interest?
(iv) Whether the policy of first-come-first-served followed
by DoT for grant of licences is ultra vires the provisions of
H 24. (2003) 6 sec 697.
RE: SPECIAL REFERENCE N0.1 OF 2012 401
[D.K. JAIN, J.]
Article 14 of the Constitution and whether the said policy A
was arbitrarily changed by the Minister of Communications
and Information Technology (hereinafter referred to as "the
Minister of Communications and Information Technology"),
without consulting TRAI, with a view to favour some of the
applicants?" B
73. While dealing with question No.(i), the Court observed
that the State is empowered to distribute natural resources as
they constitute public property/national assets. Thereafter, the
Bench observed as follows:
"75 .... while distributing natural resources the State is
c
bound to act in consonance with the principles of equality
and public trust and ensure that no action is taken which
may be detrimental to public interest. Like any other State
action, constitutionalism must be reflected at every stage
of the distribution of natural resources. In Article 39(b) of D
the Constitution it has been provided that the ownership
and control of the material resources of the community
should be so distributed so as to best subserve the
common good, but no comprehensive legislation has been
enacted to generally define natural resources and a E
framework for their protection ... "
74. The learned Judges adverted to the 'public trust
doctrine'. as enunciated in The Illinois Central Railroad Co. Vs.
The People of the State of lllinois 25 ; M. C. Mehta Vs. Kamal F
Nath & Ors. 26; Jamshed Hormusji Wadia Vs. Board of
Trustees, Port of Mumbai & Anr. 27; Intellectuals Forum,
Tirupathi Vs. State of A.P. & Ors. 28; Fomento Resorts And
Hotels Limited & Anr. Vs. Minguel Martins & Ors. 29 and
G
25. 36 LED 1018 : 146 U.S. 387 (1892).
26. (1997) 1 sec 388.
21. (2004) 3 sec 214.
28. (2006) 3 sec 549.
29. (2009) 3 sec 571. H
402 SUPREME COURT REPORTS [2012] 9 S.C.R.
A Reliance Natural Resources Limited Vs. Reliance Industries
Limited3° and held:
"85. As natural resources are public goods, the doctrine
of equality, which emerges from the concepts of justice
and fairness, must guide the State in determining the actual
B
mechanism for distribution of natural resources. In this
regard, the doctrine of equality has two aspects: first, it
regulates the rights and obligations of the State vis-a-vis
its people and demands that the people be granted
equitable access to natural resources and/or its products
c and that they are adequately compensated for the transfer
of the resource to the private domain; and second, it
regulates the rights and obligations of the State vis-a-vis
private parties seeking to acquire/use the resource and
demands that the procedure adopted for distribution is just,
D non-arbitrary and transparent and that it does not
discriminate between similarly placed private parties."
Referring to the decisions of this Court in Akhil Bhartiya
Upbhokta Congress Vs. State of Madhya Pradesh & Ors. 31
E and Sachidanand Pandey & Anr. Vs. State of West Bengal
& Ors. 32, the Bench ultimately concluded thus:
"89. In conclusion, we hold that the State is the legal owner
of the natural resources as a trustee of the people and
although it is empowered to distribute the same, the
F process of distribution must be g'Jided by the constitutional
principles including the doctrine of equality and larger
public good."
75. On a reading of the above paragraphs, it can be
G noticed that the doctrine of equality; larger public good,
adoption of a transparent and fair method, opportunity of
competition; and avoidance of any occasion to scuttle the claim
30. (2010) 7 sec 1.
31. (2011) s sec 29.
H 32. (1987) 2 sec 295.
RE: SPECIAL REFERENCE N0.1 OF 2012 403
[D.K. JAIN, J.]
of similarly situated applicants were emphasised upon. While A
dealing with alienation of natural resources like spectrum, it was
stated that it is the duty of the State to ensure that a no11-
discriminatory method is adopted for distribution and alienation
which would necessarily result in the protection of national/public
interest. B
76. Paragraphs 85 and 89, while referring to the concept
of 'public trust doctrine', lay emphasis on the doctrine of
equality, which has been segregated into two parts - one is the
substantive part and the other is the regulatory part. In the C
regulatory facet, paragraph 85 states that the procedure
adopted for distribution should be just and non-arbitrary and
must be guided by constitutional principles including the
doctrine of equality and larger public good. Similcirly, in
paragraph 89 stress has been laid on transparency and fair
opportunity of competition. It is further reiterated that the burden D
of the State is to ensure that a non-discriminatory method is
adopted for distribution and alienation which would n~cessarily
result in the protection of national and public interest.
77. Dealing with Questions No.(iii) and (iv) in paragraphs E
94 to 96 of the judgment, the Court opined as follows:
"94. There is a fundamental flaw in the first-come-first-
served policy inasmuch as it involves an element of pure
chance or accident. In matters involving award of contracts
F
or grant of licence or permission to use public property,
the invocation of first-come-first-served policy has
inherently dangerous implications. Any person who has
access to the power corridor at the highest or the lowest
level may be able to obtain information ·from the
government files c;ir the files of the agency/instrumentality G
of the State that a 'particular public property or asset is
likely to be disposed of or a contract is likely to be
awarded or a licence or permission is likely to be given,
he would immediately make an application and would
H
404 SUPREME COURT REPORTS [2012] 9 S.C.R.
A become entitled to stand first in the queue at the cost of
all others who may have a better claim.
95. This Court has repeatedly held that wherever a contract
is to be awarded or a licence is to be given, the public
B authority must adopt a transparent and fair method for
making selections so that all eligible persons get a fair
opportunity of competition. To put it differently, the State
and its agencies/ instrumentalities must always adopt a
rational method for disposal of public property and no
attempt should be made to scuttle the claim of worthy
c applicants. When it comes to alienation of scarce natural
resources like spectrum, etc. it is the burden of the State
to ensure that a non-discriminatory method is adopted for
distribution and alienation, which would necessarily result
in protection of national/public interest.
D
96. In our view, a duly .13ublicised auction conducted fairly
and impartially is perh~ps the best method for discharging
this burden and the methods like first-come-first-served
when used for alienation of natural resources/public
E property are likely to be misused by unscrupulous people
who are only interested in garnering maximum financial
benefit and have no respect for the constitutional ethos and
values. In other words, while transferring or alienating the
natural resources, the State is duty-bound to adopt the
F method of auction by giving wide publicity so that all
eligible persons can participate in the process."
78. Our reading of these paragraphs suggests that the
Court was not considering the case of auction in general, but
specifically evaluating the validity of those methods adopted in
G the distribution of spectrum from September 2007 to March
2008. It is also pertinent to note that reference to auction is
made in the subsequent paragraph (96) with the rider
'perhaps'. It has been observed that "a duly publicized auction
conducted fairly and impartially is perhaps the best method for
H discharging this burden." We ;:ire conscious that a judgment is
RE: SPECIAL REFERENCE N0.1 OF 2012 405
[D.K. JAIN, J.]
not to be read as a statute. but at the same time, we cannot A
be oblivious to the fact that when it is argued with vehemence
that the judgment lays down auction as a constitutional principle,
the word "perhaps" gains significance. This suggests that the
recommendation of auction for alienation of natural resources
was never intended to be taken as an absolute or blanket B
statement applicable across all natural resowces, but simply
a conclusion made at first blush over the attractiveness of a
method like auction in disposal of natural resources. The choice
of the word 'perhaps' suggests that the learned Judges
considered situations requiring a method other than auction as c
conceivable and desirable.
79. Further, the final conclusions summarized in paragraph
102 of the judgment (SCC) make no mention about auction
being the only permissible and intra vires method for disposal
of natural resources; the findings are limited to the case of D
spectrum. In case the Court had actually enunciated, as a
proposition of law, that auction is the only permissible method
or mode for alienation/allotment of natural resources, the same
would have found a mention in the summary at the end of the
judgment. E
80. Moreover, if the judgment is to be read as holding
auction as the only permissible means of disposal of all natural
resources, it would lead to the quashing of a large number of
laws that prescribe methods other than auction, e.g., the MMRD F
Act. While dealing with the merits of the Reference, at a later
stage, we will discuss whether or not auction can be a
constitutional mandate under Article 14 of the Constitution, but
for the present, it would suffice to say that no court would ever
implicitly, indirectly, or by inference, hold a range of laws as ultra G
vires the Constitution, without allowing every law to be tested
on its merits. One of the most profound tenets of
constitutionalism is the presumption of constitutionality
assigned to each legislation enacted. We find that the 2G Case
does not even consider a plethora of laws and judgments that
H
406 SUPREME COURT REPORTS [2012] 9 S.C.R.
A prescribe methods, other than auction, for dispensation of
natural resources; something that it would have done. in case,
it intended to make an assertion as wide as applying auction
to all natural resources. Therefore, we are convinced that the
observations in Paras 94 to 96 could not apply beyond the
'3 specific case of spectrum, which according to the law declared
in the 2G Case, is to be alienated only by auction and no other
method.
81. Thus, having come to the conclusion that the 2G Case
C does not deal with modes of allocation for natural resources,
other than spectrum, we shall now proceed to answer the first
question of the Reference pertaining to other natural resources,
as the question subsumes the essence of the entire reference,
particularly the set of first five q1Jestions.
D 82. The President seeks this Court's opinion on the limited
point of permissibility of methods other than auction for
alienation of natural resources, other than spectrum. The
question also harbours several concepts, which were argued
before us through the hearing of the Reference, that require to
E be answered in order to derive a comprehensive answer to the
parent question. Are some methods ultra vires and others intra
vires the Constitution of India, especially Article 14? Can
disposal through the method of auction be elevated to a
Constitutional principle? Is this Court entitled to direct the
F executive to adopt a certain method because it is the 'best'
method? If not, to what extent can the executive deviate from
such 'best' method? An answer to these issues, in turn, will give
an answer to the first question which, as noted above, will
answer the Presidential Reference.
G 83. Before proceeding to answer these questions, we
would like to dispose of a couple of minor objections. The first
pertained to the classification of resources made in the 2G
Case. Learned counsel appearing for CPIL argued that all that
the judgment in the 2G Case has done is to carve out a special
H
RE: SPECIAL REFERENCE N0.1 OF 2012 407
[D.K. JAIN, J.]
category of cases where public auction is the only legally A
sustainable method of alienation viz. natural resources that are
scarce, valuable and are allotted to private entities for
commercial exploitation. The learned Attorney General,
however, contested this claim and argued that no such
proposition was laid down in the 2G judgment. He pointed out B
that the words "commercial exploitation" were not even used
anywhere in the judgment except in an extract from anothe~
judgment in a different context. We agree that the judgment itself
does not carve out any special case for scarce natural
resources only meant for commercial exploitation. However, we c
feel, despite that, in this Reference, CPIL is not barred from
making a submission drawing a distinction between natural
resources meant for commercial exploitation and those meant
for other purposes. This Court has the jurisdiction to classify
the subject matter of a reference, if a genuine case for it exists. 0
84. Mr. Shanti Bhushan, learned Senior Counsel, in
support of his stand that the first question of the Reference must
be answered in a way so as to allow auction as the only mode
for the disposal of natural resources, submitted that a combined
reading of Article 14, which dictates non- arbitrariness in State E
action and equal opportunity to those similarly placed; Article
39(b) which is a Directive Principle of State Policy dealing with
distribution of natural resources for the common good of the
people; and the "trusteeship" principle found in the Preamble
which mandates that the State holds all natural resources in the
F
capacity of a trustee, on behalf of the people, would make
auction a constitutional mandate under Article 14 of the
Constitution. It is imperative, therefore, that we evaluate each
of these principles before coming to any conclusion on the
constitutional verdict on auction.
G
85. In the 2G Case, two concepts namely, "public trust
doctrine" and "trusteeship" have been adverted to, which were
also relied upon by learned counsel for CPIL, in defence of the
argument that the State holds natural resources in a fiduciary
relationship with the people. As far as "trusteeship" is
H
408 SUPREME COURT REPORTS [2012] 9 S.C.R.
A concerned, there is no cavil that the State holds all natural
resources as a trustee of the public and must deal with them
in a manner that is consistent with the nature of such a trust.
However, what was asserted on behalf of CPIL was that all
natural resources fall within the domain of the "public trust
B doctrine", and therefore, there is an obligation on the
Government to ensure that their transfer or alienation for
commercial exploitation is in a fair and transparent manner and
only in pursuit of public good. The learned Attorney General on
the other hand, zealously urged that the subject matter of the
c doctrine and the nature of restrictions, it imposes, are of limited
scope; that the applicability of the doctrine is restricted to
certain common properties pertaining to the environment, like
rivers, seashores, forest and air, meant for free and unimpeded
use of the general public and the restrictions it imposes is in
D the term of a complete embargo on any alienation of such
resources, for private ownership. According to him, the
extension of the public trust doctrine to all natural resources has
led to a considerable confusion and needs to be clarified.
86. The doctrine of public trust enunciated more thoroughly
E by the United States Supreme Court in Illinois (supra) was
introduced to Indian environmental jurisprudence by this Court
in M. C. Mehta (supra). Speaking for the majority, Kuldip Singh,
J. observed as follows :
"25. The Public Trust Doctrine primarily rests on the
F principle that certain resources like air, sea, waters and
the forests have such a great importance to the people as
a whole that it would be wholly unjustified to make them a
subject of private ownership. The said resources being a
gift of nature, they should be made freely available to
everyone irrespective of the status in life. The doctrine
G
enjoins upon the Government to protect the resources for
the enjoyment of the general public rather than to permit
their use for private ownership or commercial purposes.
According to Professor Sax the Public Trust Doctrine
imposes the following restrictions on governmental
H authority:
RE: SPECIAL REFERENCE N0.1 OF 2012 409
[D.K. JAIN, J.]
'Three types of restrictions on governmental A
authority are often thought to be imposed by the
public trust: first, the property subject to the trust
must not only be used for a public purpose, but it
mu.st be held available for use by the general
public; second, the property may not be sold, even B
for a fair cash equivalent; and third the property
must be maintained for particular types of uses'."
The learned Judge further observed:-
"34. Our legal system - based on English common law - c
includes the public trust doctrine as part of its
jurisprudence. The State is the trustee of all natural
resources which are by nature meant for public use and
enjoyment. Public at large is the beneficiary of the sea-
shore, running waters, airs, forests and ecologically fragile
0
lands. The State as a trustee is under a legal duty to
protect the natural resources. These resources meant for
public use cannot be converted into private ownership."
87. The judgment in Kamal Nath's case (supra) was
explained in Intellectuals Forum (supra). Reiterating that the E
State is the trustee of all natural resources which are by nature
meant for public use and enjoyment, the Court observed thus:
"76. The Supreme Court of California, in National
Audubon Society Vs. Superior Court of Alpine Country
also known as Mono Lake case summed up the substance F
of the doctrine. The Court said:
"Thus the public trust is more than an affirmation of
State power to use public property for public
purposes. It is an affirmation of the duty of the State G
to protect the people's common heritage of
streams, lakes, marshlands and tidelands,
surrendering the right only in those rare cases
when the abandonment of the right is consistent with
the purposes of the trust."
H
410 SUPREME COURT REPORTS [2012] 9 S.C.R.
A This is an articulation of the doctrine from the angle of the
affirmative duties of the State with regard to public trust.
Formulated from a negatory angle, the doctrine does not
exactly prohibit the alienation of the property held as a
public trust. However, when the State holds a resource that
B is freely available for the use of the public, it provides for
a high degree of judicial scrutiny on any action of the
Government, no matter how consistent with the existing
legislations, that attempts to restrict such free use. To
properly scrutinise such actions of the Government, the
c courts must make a distinction between the Government's
general obligation to act for the public benefit, and the
special, more demanding obligation which it may have as
a trustee of certain public resources ... "
It was thus, held that when the affirmative duties are set
D out from a nugatory angle, the doctrine does not exactly prohibit
the alienation of property held as a public trust, but mandates
a high degree of judicial scrutiny.
88. In Fomento (supra), the Court was concerned with the
E access of the public to a beach in Goa. Holding that it was a
public beach which could not be privatized or blocked denying
traditional access, this Court reiterated the public trust doctrine
as follows:
"52. The matter deserves to be considered from another
F angle. The public trust doctrine which has been invoked
by Ms Indira Jaising in support of her argument that the
beach in question is a public beach and the appellants
cannot privatise the same by blocking/ obstructing
traditional access available through Survey No. 803 (new
G No. 246/2) is implicitly engrafted by the State Government
in Clause 4(ix) of the agreement. That doctrine primarily
rests on the principle that certain resources like air, sea,
waters and the forests have such a great importance to
the people as a whole that it would be wholly unjustified to
H make them a subject of private ownership. These
RE: SPECIAL REFERENCE N0.1 OF 2012 411
[D.K. JAIN, J.]
resources are gift of nature, therefore, they should be freely A
available to everyone irrespective of one's status in life."
89. In Reliance Natural Resources (supra), it has been
observed that even though the doctrine of pubic trust has been
applied in cases dealing with environmental jurisprudence, "it 8
has broader application". Referring to Kamal Nath (supra), the
Court held that it is the duty of the Government to provide
complete protection to the natural resources as a trustee of the
people at large.
90. The public trust doctrine is a specific doctrine with a C
particular domain and has to be applied carefully. It has been
seriously debated before us as to whether the doctrine can be
applied beyond the realm of environmental protection. Richard
J. Lazarus in his article, "Changing Conceptions of Property
and Sovereignty in Natural Resources: Questioning the Public D
Trust Doctrine", while expressing scepticism over the
'liberation' of the doctrine, makes the following observations:-
"The strength of the public trust doctrine necessarily lies
in its origins; navigable waters and submerged lands are
E
the focus of the doctrine, and the basic trust interests in
navigation, commerce, and fishing are the object of its
guarantee of public access. Commentators and judges
alike have made efforts to "liberate", "expand", and
"modify" the doctrine's scope yet its basic focus remain~
F
relatively unchanged. Courts still repeatedly return to the
doctrine's historical function to determine its present role.
When the doctrine is expanded, more often than not the
expansions require tortured constructions of the present
rather than repudiations of the doctrine's past."
G
However, we feel that for the purpose of the present
opinion, it is not necessary to delve deep into the issue as in
Intellectuals Forum (supra), the main departure from the
principle explained by Joseph. L. Sax in his Article "The Public
Trust Doctrine in Natural Resource Law: Effective Judicial H
412 SUPREME COURT REPORTS [2012] 9 S.C.R.
A Intervention" is that public trust mandates a high degree of
judicial scrutiny, an issue that we will anyway elaborately
discuss while enunciating the mandate of Article 14 of the
Constitution.
91. We would also like to briskly deal with a similar
8
argument made by Mr. Shanti Bhushan. The learned senior
counsel submitted that the repository of sovereignty in our
framework is the people of this country since the opening words
of the Constitution read "We The People of India ... do hereby
C adopt, enact and give to ourselves this Constitution," and
therefore the government, as the agent of the Sovereign, the
people, while alienating natural resources, must heed to judicial
care and due process. Firstly, this Court has held in Raja Ram
Pal Vs. Hon'ble Speaker, Lok Sabha & Ors 33 • that the
"Constitution is the supreme lex in this country" and "all organs
D of the State derive their authority, jurisdiction and powers from
the Constitution and owe allegiance to it". Further, the notion
that the Parliament is an agent of the people was squarely
rebutted in In Re: Delhi Laws Act, 1912 (supra), where it was
observed that "the legislature as a body cannot be seen to be.
E an agency of the electorate as a whole" and "acts on its own
authority or power which it derives from the Constitution". .
92. In Municipal Corporation of Delhi Vs. Bir/a Cotton,
Spinning and Weaving Mills, Delhi & Anr34 • this Court held that
F "the doctrine that it (the Parliament) is a delegate of the people
coloured certain American decision does not arise here" and
that in fact the "Parliament which by a concentration of all the
powers of legislation derived from all the three Legislative Lists
becomes the most competent and potent legislature it is
G possible to erect under our Constitution." We however,
appreciate the concern of Mr. Shanti Bhushan that the lack of
any such power in the hands of the people must not be a
sanction for recklessness during disposal of natural resources.
33. (2007) 3 sec 184; Para 21.
H 34. [1968] 3 SCR 251.
RE: SPECIAL REFERENCE N0.1 OF 2012 413
[D.K. JAIN, J.]
The legislature and the Executive are answerable to the A
Constitution and it is there where the judiciary, the guardian of
the Constitution, must find the contours to the powers of
disposal of natural resources, especially Article 14 and Article
39{b).
B
MANDATE OF ARTICLE 14:
93. Article 14 runs as follows:
"14. Equality before law. - The State shall not deny to any
person equality before the law or the equal protection of C
the laws within the territory of India."
94. The underlying object of Article 14 is to secure to all
persons, citizens or non-citizens, the equality of status and
opportunity referred to in the preamble to our Constitution. The
D
language of Article 14 is couched in negative terms and is in
form, an admonition addressed to the State. It does not directly
purport to confer any right on any person as some of the other
Articles, e.g., Article 19, do. The right to equality before law is
secured from all legislative and executive tyranny by way of
discrimination since the language of Article 14 uses the word E
"State" which as per Article 12, includes the executive organ.
[See: Basheshar Nath Vs. The Commissioner of Income Tax,
Delhi & Rajasthan & Anr. 35 ]. Besides, Article 14 is expressed
in absolute terms and its effect is not curtailed by restrictions
like those imposed on Article 19(1) by Articles 19(2)-(6). F
35. 1959 Supp (1) SCR 528- "Coming then to the language of the Article it
must be noted, first and foremost that this Article is, in form, an admonition
addressed to the State and does not directly purport to confer any right on
any person as some of the other Articles, e.g., Article 19, do. The obligation
G
thus imposed on the State, no doubt, ensures for the benefit of all persons,
for, as a necessary result of the operation of this Article, they all enjoy
equality before the law. That is, however, the indirect, though necessary
and inevitable, result of the mandate. The command of the Article is directed
to the State and the reality of the obligation thus imposed on the State is
the measure of the fundamental right which every person within the territory
of India is to enjoy.". H
414 SUPREME COURT REPORTS [2012] 9 S.C.R.
A However, notwithstanding the absence of such restrictions,
certain tests have been devised through judicial decisions to
test if Article 14 has been violated or not.
95. For the first couple of decades after the establishment
of this Court, the 'classification' test was adopted which allowed
8
for a classification between entities as long as it was based
on an intelligible differentia and displayed a rational nexus with
the ultimate objective of the policy. Budhan Choudhry & Ors.
Vs. State of Bihaf3 6 referred to in Shri Ram Krishna Dalmiya
C Vs. Shri Justice S.R. Tendo/kar and Ors. 37 explained it in the
following terms:
"It is now well established that while article 14 forbids class
legislation, it does not forbid reasonable classification for
the purposes of legislation. In order, however, to pass the
D test of permissible classification two conditions must be
fulfilled, namely, (i) that the classification must be founded
on an intelligible differentia which distinguishes persons or
things that are grouped together from others left out of the
group and, (ii) that that differentia must have a rational
E relation to the object sought to be achieved by the statute
in question. The classification may be founded on different
bases, namely, geographical, or according to objects or
occupations or the like. What is necessary is that there
must be a nexus between the basis of classification and
F the object of the Act under consideration. It is also well
established by the decisions of this Court that article 14
condemns discrimination not only by.a substantive law but
also by a law of procedure."
96. However, after the judgment of this Court in E.P.
G Royappa Vs. State of Tamil Nadu & Anf3 8 the 'arbitrariness'
doctrine was introduced which dropped a pedantic approach
36. AIR 1955 SC 191.
37. (1959] 1 SCR 279.
H 38. (1974) 4 sec 3.
RE: SPECIAL REFERENCE N0.1 OF 2012 415
[D.K. JAIN, J.]
towards equality and held the mere existence of arbitrariness A
as violative of Article 14, however equal in its treatment. Justice
Bhagwati (as his Lordship was then) articulated the dynamic
nature of equality and borrowing from Shakespeare's Macbeth,
said that the concept must not be "cribbed, cabined and
confined" within doctrinaire limits: - B
"85 .... Now, what is the content and reach of this great
equalising principle? It is a founding faith, to use the words
of Bose. J., "a way of life", and it must not be subjected to
a narrow pedantic or lexicographic approach. We cannot C
countenance any attempt to truncate its all-embracing
scope and meaning, for to do so would be to violate its
activist magnitude. Equality is a dynamic concept with
many aspects and dimensions and it cannot be "cribbed,
cabined and confined" within traditional and doctrinaire
limits." D
His Lordship went on to explain the length and breadth of
Article 14 in the following lucid words:
"85 ... From a positivistic point of view, equality is antithetic E
to arbitrariness. In fact equality and arbitrariness are sworn
enemies; one belongs to the rule of law in a republic while
the other, to the whim and caprice of an absolute monarch.
Where an act is arbitrary, it is implicit in it that it is unequal
both according to political logic and constitutional law and
F
is therefore violative of Article 14, and if it effects any
matter relating to public employment, it is also violative of
Article 16. Articles 14 and 16 strike at arbitrariness in
State action and ensure fairness and equality of treatment.
They require that State action must be based on valid
relevant.principles applicable alike.to all similarly situate G
and it must not be guided by any extraneous or irrelevant
considerations because that would be denial of equality.
Where the operative reason for State action, as
distinguished from motive inducing from the antechamber
of the mind, is not legitimate and relevant but is extraneous H
416 SUPREME COURT REPORTS [2012] 9 S.C.R.
A and outside the area of permissible considerations, it
would amount to mala fide exercise of power and that is
hit by Articles 14 and 16. Mala fide exercise of power and
arbitrariness are different lethal radiations emanating from
the same vice: in fact the latter comprehends the former.
B Both are inhibited by Articles 14 and 16."
97. Building upon his opinion delivered in Royappa's case
(supra), Bhagwati, J., held in Maneka Gandhi Vs. Union of
India & Anr. 39 :
C "The principle of reasonableness, which legally as well as
philosophically, is an essential element of equality or non-
a rbitra ri ness pervades Article 14 like a brooding
omnipresence and the procedure contemplated by Article
21 must answer the test of reasonableness in order to be
D in conformity with Article 14. It must be "right and just and
fair" and not arbitrary, fanciful or oppressive."
98. In Ajay Hasia & Ors. Vs. Khalid Mujib Sehravardi &
40
Ors. , this Court said that the 'arbitrariness' test was lying
E "latent and submerged" in the "simple but pregnant" form of
Article 14 and explained the switch from the 'classification'
doctrine to the 'arbitrariness' doctrine in the following words:
"16 ... The doctrine of classification which is evolved by the
courts is not paraphrase of Article 14 nor is it the objective
F and end of that article. It is merely a judicial formula for
determining whether the legislative or executive action in
question is arbitrary and therefore constituting denial of
equality. If the classification is not reasonable and does
not satisfy the two conditions referred to above, the
G impugned legislative or executive action would plainly be
arbitrary and the guarantee of equality under Article 14
would be breached. Wherever therefore there is
arbitrariness in State action whether it be of the legislature
39. (1978) 1 sec 248.
H 40. (1981) 1 sec 722.
RE: SPECIAL REFERENCE N0.1 OF 2012 417
[D.K. JAIN, J.]
or of the executive or of an 'authority' under Article 12, A
Article 14 immediately springs into action and strikes
down such State action. In fact, the concept of
reasonableness and non-arbitrariness pervades the entire
constitutional scheme and is a golden thread which runs
through the whole of the fabric of the Constitution." B
99. Ramana Dayaram Shetty Vs. International Airport
Authority of India & Ors. 41 explained the limitations of Article
14 on the functioning of the Government as follows: -
"12 ... It must, therefore, be taken to be the law that where C
the Government is dealing with the public, whether by way
of giving jobs or entering into contracts or issuing quotas
or licences or granting other forms of largesse, the
Government cannot act arbitrarily at its sweet will and, like
a private individual, deal with any person it pleases, but D
its action must be in conformity with standard or norms
which is not arbitrary, irrational or irrelevant. The power or
discretion of the Government in the matter of grant of
largesse including award of jobs, contracts, quotas,
licences, etc. must be confined and structured by rational, E
relevant and non-discriminatory standard or norm and if the
Government departs from such standard or norm in any
particular case or cases, the action of the Government
would be liable to be struck down, unless it can be shown
by the Government that the departure was not arbitrary, but F
was based on some valid principle which in itself was not
irrational, unreasonable or discriminatory."
100. Equality and arbitrariness were thus, declared "sworn
enemies" and it was held that an arbitrary act would fall foul of
the right to equality. Non-arbitrariness was equated with the rule G
of law about which Jeffrey Jowell in his seminal article "The
Rule of Law Today" said: -
41. (1979) 3 sec 489: AIR 1979 SC 1628.
H
418 SUPREME COURT REPORTS [2012) 9 S.C.R.
A "Rule of law principle primarily applies to the power of
implementation. It mainly represents a state-of procedural
fairness. When the rule of law is ignored by an official it
may on occasion be enforced by courts."
101. As is evident from the above, the expressions
8
'arbitrariness' and 'unreasonableness' have been used
interchangeably and in fact, one has been defined in terms of
the other. More recently, in Sharma Transport Vs. Government
of A.P. & Ors. 42, this Court has observed thus:
C "25 ... ln order to be described as arbitrary, it must be
shown that it was not reasonable and manifestly arbitrary.
The expression "arbitrarily" means: in an unreasonable
manner, as fixed or done capriciously or at pleasure,
without adequate determining principle, not founded in the
D nature of things, non-rational, not done or acting according
to reason or judgment, depending on the will alone."
102. Further, even though the 'classification' doctrine was
never overruled, it has found less favour with this Court as
E compared to the 'arbitrariness' doctrine. In Om Kumar & Ors.
Vs. Union of lndia 43, this Court held thus:
"59. But, in E.P. Royappa v. State of T. N. Bhagwati, J laid
down another test for purposes of Article 14. It was stated
that if the administrative action was "arbitrary", it could be
F struck down under Article 14. This principle is now
uniformly followed in all courts more rigorously than the one
based on classification. Arbitrary action by the
administrator is described as one that is irrational and not
based on sound reason. It is also described as one that
G is unreasonable."
103. However, this Court has also alerted against the
arbitrary use of the 'arbitrariness' doctrine. Typically, laws are
42. c2002) 2 sec 188.
H 43. c2001) 2 sec 386.
RE: SPECIAL REFERENCE N0.1 OF 2012 419
[D.K. JAIN, J.]
struck down for violating Part Ill of the Constitution of India, A
legislative incompetence or excessive delegation. However,
since Royappa's case (supra), the doctrine has been loosely
applied. This Court in State of A.P. & Ors. Vs. McDowell & Co.
& Ors. 44 stressed on the need for an objective and scientific
analysis of arbitrariness, especially while striking down B
legislations. Justice Jeevan Reddy observed:
"43 ... The power of Parliament or for that matter, the State
Legislatures is restricted in two ways. A law made by
Parliament or the legislature can be struck down by courts C
on two grounds and two grounds alone, viz., (1) lack of
legislative competence and (2) violation of any of the
fundamental rights guaranteed in Part Ill of the Constitution
or of any other constitutional provision. There is no third
ground. We do not wish to enter into a discussion of the
concepts of procedural unreasonableness and substantive D
unreasonableness - concepts inspired by the decisions of
United States Supreme Court. Even in U.S.A., these
concepts and in particular the concept of substantive due
process have proved to be of unending controversy, the
latest thinking tending towards a severe curtailment of this E
ground (substantive due process). The main criticism
against the ground of substantive due process being that
it seeks to set up the courts as arbiters of the wisdom of
the legislature in enacting the particular piece of legislation.
It is enough for us to say that by whatever name it is F
characterised, the ground of invalidation must fall within the
four corners of the two grounds mentioned above. In other
words, say, if an enactment is challenged as violative of
Article 14, it can be struck down only if it is found that it is
violative of the equality clause/equal protection clause G
enshrined therein. Similarly, if an enactment is challenged
as violative of any of the fundamental rights guaranteed by
clauses (a) to (g) of Article 19(1 ), it can be struck down
44. (1996) 3 sec 709. H
420 SUPREME COURT REPORTS [2012] 9 S.C.R.
A only if it is found not saved by any of the clauses (s) to (6)
of Article 19 and so on. No enactment can be struck down
by just saying that it is arbitrary** or unreasonable. Some
or other constitutional infirmity has to be found before
invalidating an Act. An enactment cannot be struck down
B on the ground that court thinks it unjustified. Parliament and
the legislatures, composed as they are of the
representatives of the people, are supposed to know and
be aware of the needs of the people and what is good and
bad for them. The court cannot sit in judgment over their
c wisdom. In this connection, it should be remembered that
even in the case of administrative action, the scope of
judicial review is limited to three grounds, viz., (i)
unreasonableness, which can more appropriately be
called irrationality, (ii) illegality and (iii) procedural
impropriety (see Council of Civil Service Unions v. Minister
D
for Civil Service which decision has been accepted by this
Court as well).
**An expression used widely and rather indiscriminately -
an expression of inherently imprecise import. The
E extensive use of this expression in India reminds one of
what Frankfurter, J said in Hattie Mae Tiller v. Atlantic
Coast Line Railroad Co., 87 L ED 610 : 318 US 54
(1943). "The phrase begins life as a literary expression;
its felicity leads to its lazy repetition and repetition soon
F establishes it as a legal formula, undiscriminatingly used
to express different and sometimes contradictory ideas",
said the learned Judge."
104. Therefore, ever since the Royappa era, the
G conception of 'arbitrariness' has not undergone any significant
change. Some decisions have commented on the doctrinal
looseness of the arbitrariness test and tried keeping its folds
within permissible boundaries. For instance, cases where
legislation or rules have been struck down as being arbitrary
H in the sense of being unreasonable (See: Air India Vs. Nergesh
RE: SPECIAL REFERENCE N0.1 OF 2012 421
[D.K. JAIN, J.]
Meerza 45 (SCC at pp. 372-373)] only on the basis of A
"arbitrariness", as explained above, have been doubted in
McDowell's case (supra). But otherwise, the subject matter,
content and tests for checking violation of Article 14 have
remained, more or less, unaltered.
B
105. From a scrutiny of the trend of decisions it is clearly
perceivable that the action of the State, whether it relates to
distribution of largesse, grant of contracts or allotment of land,
is to be tested on the touchstone of Article 14 of the
Constitution. A law may not be struck down for being arbitrary
without the pointing out of a constitutional infirmity as C
McDowell's case (supra) has said. Therefore, a State action
has to be tested for constitutional infirmities qua Article 14 of
the Constitution. The action has to be fair, reasonable, non-
discriminatory, transparent, non-capricious, unbiased, without
favouritism or nepotism, in pursuit of promotion of healthy D
competition and equitable treatment. It s.hould conform to the
norms which are rational, informed with reasons and guided by
public interest, etc. All these principles are inherent in the
fundamental conception of Article 14. This is the mandate of
Article 14 of the Constitution of India. E
WHETHER 'AUCTION' A CONSTITUTIONAL MANDATE:
106. Such being the constitutional intent and effect of
Article 14, the question arises - can auction as a method of
F
disposal of natural resources be declared a constitutional
mandate under Article 14 of the Constitution of India? We
would unhesitatingly answer it in the negative since any other
answer would be completely contrary to the scheme of Article
14. Firstly, Article 14 may imply positive and negative rights for
an individual, but with respect to the State, it is only couched G
in negative terms; like an admonition against the State which
prohibits the State from taking up actions that may be arbitrary,
unreasonable, capricious or discriminatory. Article 14,
45. (1981) 4 sec 335. H
422 SUPREME COURT REPORTS [2012] 9 S.C.R.
A therefore, is an injunction to the State against taking certain type
of actions rather than commanding it to take particular steps.
Reading the mandate of auction into its scheme would thus, be
completely contrary to the intent of the Article apparent from its
plain language.
B
107. Secondly, a constitutional mandate is an absolute
principle that has to be applied in all situations; it cannot be
applied in some and not tested in others. The absolute principle
is then applied on a case by case basis to see which actions
fulfill the requirements of the constitutional principle and which
C do not.
108. Justice K. Subba Rao in his lectures compiled in a
book titled "Some Constitutional Problems''. critically analyzing
the trends of Indian constitutional development, stated as follows:
D
"If the Courts, instead of limiting the scope of the articles
by construction, exercise their jurisdiction in appropriate
cases, I have no doubt that the arbitrariness of the
authorities will be minimised. If these authorities entrusted
with the discretionary powers, realize that their illegal
E
orders infringing the rights of the people would be quashed
by the appropriate authority, they would rarely pass orders
in excess of their powers. If they knew that not only the form
but the substance of the orders would be scrutinized in
open court, they would try to keep within their bounds. The
F fear of ventilation of grievance in public has always been
an effective deterrent. The apprehension that the High
Courts would be swamped with writs has no basis."
109. Similar sentiments were expressed by Justice K. K.
G Mathew in series of lectures incorporated in the form of a book
titled "Democracy, Equality and Freedom" in which it is stated
that "the strength of judicial review lies in case to case
adjudication." This is precisely why this Court in His Holiness
Kesavananda Bharti Sripadagalvaru Vs. State of Kera/a &
H
RE: SPECIAL REFERENCE N0.1 OF 2012 423
[D.K. JAIN, J.]
Anr46 . quoting from an American decision, observed as follows: A
"1695 ... The reason why the expression "due process" has
never been defined is that it embodies a concept of
fairness which has to be decided with reference to the
facts and circumstances of each case and also according 8
to the mores for the time being in force in a society to
which the concept has to be applied. As Justice
Frankfurter said, "due process" is not a technical
conception with a fixed content unrelated to time, place and
circumstances [See Joint Anti-Fascist Refugee C
Committee v. McGrath 341 U.S. 123]".
110. Equality, therefore, cannot be limited to mean only
auction, without testing it in every scenario. In The State of West
Bengal Vs. Anwar Ali Sarkar47 , this Court, quoting from Kotch
Vs. Pilot Comm'rs48 , had held that "the constitutional command D
for a State to afford equal protection of the laws ·sets a goal
not attainable by the invention and application of a precise
formula. This Court has never attempted that impossible task".
One cannot test the validity of a law with reference to the
essential elements of ideal democracy, actually incorporated E
in the Constitution. (See: Indira Nehru Gandhi Vs. Raj
Narain4 9 ). The Courts are not at liberty to declare a statute void;
because in their opinion it is opposed to the spirit of the
Constitution. Courts cannot declare a limitation or constitutional
requirement under the notion of having discovered some ideal F
norm. Further, a constitutional principle must not be limited to
a precise formula but ought to be an abstract principle applied
to precise situations. The repercussion of holding auction as a
constitutional mandate would be the voiding of every action that
deviates from it, including social endeavours, welfare schemes G
46. (1973) 4 sec 225.
47. 1952 SCR 284 at pp. 297.
48. 330 U.S. 552.
49. 1975 (Supp) sec 1. H
424 SUPREME COURT REPORTS [2012] 9 S.C.R.
A and promotional policies, even though CPIL itself has argued
against the same, and asked for making auction mandatory
only in the alienation of scarce natural resources meant for
private and commercial business ventures. It would be odd to
derive auction as a constitutional principle only for a limited set
B of situations from the wide and generic declaration of Article
14. The strength of constitutional adjudication lies in case to
case adjudication and therefore auction cannot be elevated to
a constitutional mandate.
C 111. Finally, reading auction as a constitutional mandate
would be impermissible because such an approach may distort
another constitutional principle embodied in Article 39(b). The
said article enumerating certain principles of policy, to be
followed by the State, reads as follows:
D "The State shall, in particular, direct its policy towards
securing -
(a)
(b) that the ownership and control of the material
E resources of the community are so distributed as
best to subserve the common good;
"
F The disposal of natural resources is a facet of the use and
distribution of such resources. Article 39(b) mandates that the
ownership and control of natural resources should be so
distributed so as to best subserve the common good. Article
37 provides that the provisions of Part IV shall not be
G enforceable by any Court, but the principles laid down therein
are nevertheless fundamental in the governance of the country
and it shall be the duty of the State to cipply these principles in
making laws.
112. Therefore, this Article, in a sense, is a restriction on
H 'distribution' built into the Constitution. But the restriction is
RE: SPECIAL REFERENCE N0.1 OF 2012 425
[O.K. JAIN, J.]
imposed on the object and not the means. The overarching and A
underlying principle governing 'distribution' is furtherance of
common good. But for the achievement of that objective, the
Constitution uses the generic word 'distribution'. Distribution
has broad contours and cannot be limited to meaning only one
method i.e. auction. It envisages all such methods available for B
distribution/allocation of natural resources which ultimately
subserve the "common good".
113. In State of Tamil Nadu & Ors. Vs. L. Abu Kavur Bai
& Ors. 50, this Court explained the broad-based concept of C
'distribution' as follows:
"89 .... The word 'distribution' used in Article 39(b) must be
broadly construed so that a court may give full and
comprehensive effect to the statutory intent contained in
Article 39 (b). A narrow construction of the word 0
'distribution' might defeat or frustrate the very object which
the Article seeks to subserve ... "
114. After noting definitions of 'distribution' from different
dictionaries, this Court held:
E
"92. It is obvious, therefore, that in view of the vast range
of transactions contemplated by the word 'distribution' as
mentioned in the dictionaries referred to above, it will not
be correct to construe the word 'distribution' in a purely
literal sense so as to mean only division of a particular F
kind or to particular persons. The words, apportionment,
allotment, allocation, classification, clearly fall within the
broad sweep of the word 'distribution'. So construed, the
word 'distribution' as used in Article 39(b) will include
various facets, aspects, methods and terminology of a G
broad-based concept of distribution ... "
115. It can thus, be seen from the afore-quoted
paragraphs that the term "distribute" undoubtedly, has wide
50. (1984) 1 sec 515. H
426 SUPREME COURT REPORTS [2012] 9 S.C.R.
A amplitude and encompasses all manners and methods of
distribution, which would include classes, industries, regions,
private and public sections, etc. Having regard to the basic
nature of Article 39(b}, a narrower concept of equality under
Article 14 than that discussed above, may frustrate the broader
B concept of distribution, as conceived in Article 39(b). There
cannot, therefore, be a cavil that "common good' and "larger
public interests" have to be regarded as constitutional reality
deserving actualization.
116. Learned counsel for CPIL argued that revenue
C maximization during the sale or alienation of a natural resource
for commercial exploitation is the only way of achieving public
good since the revenue collected can be channelized to welfare
policies and controlling the burgeoning deficit. According to the
learned counsel, since the best way to maximize revenue is
D through the route of auction, it becomes a constitutional
principle even under Article 39(b}. However, we are not
persuaded to hold so. Auctions may be the best way of
maximizing revenue but revenue maximization may not always
be the best way to subserve public good. "Common good" is
E the sole guiding factor under Article 39(b} for distribution of
natural resources. It is the touchstone of testing whether any
policy subserves the "common good" and if it does, irrespective
of the means adopted, it is clearly in accordance with the
principle enshrined in Article 39(b).
F
117. In The State of Karnataka and Anr. Vs. Shri
Ranganatha Reddy and Anr. 51 , Justice Krishna lysr observed
that keeping in mind the purpose of an Article like 39(b), a
broad rather than a narrow meaning should be given to the
G words of that Article. In his inimitable style, his Lordship opined
thus:
"83. Two conclusions strike us as quintessential. Part IV,
especially Article 39(b} and (c), is a futuristic mandate to
H 51. (1977) 4 sec 471.
RE: SPECIAL REFERENCE N0.1 OF 2012 427
[D.K. JAIN, J.]
the state with a message of transformation of the A
economic and social order. Firstly, such change calls for
collaborative effort from all the legal institutions of the
system: the legislature, the judiciary and the administrative
machinery. Secondly and consequentially, loyalty to the high
purpose of the Constitution, viz., social and economic B
justice in the context of material want and utter inequalities
on a massive scale, compels the court to ascribe
expansive meaning to the pregnant words used with
hopeful foresight, not to circumscribe their connotation into
contradiction of the objectives inspiring the provision. To c
be Pharisaic towards the Constitution through ritualistic
construction is to weaken the social-spiritual thrust of the
founding fathers' dynamic faith."
118. In the case of Bennett Coleman & Co. and Ors. Vs.
Union of India and Ors52 ., it has been held by this Court that D
"the only norm which the Constitution furnishes for distribution
of material resources of the community is elastic norm of
common good." Thus "common good" is a norm in Article 39(b)
whose applicability was considered by this Court on the facts
of the case. Even in that case, this Court did not evolve E·
economic criteria of its own to achieve the goal of "common
good" in Article 39(b), which is part of the Directive Principles.
119. The norm of "common good" has to be understood
and appreciated in a holistic manner. It is obvious that the F
manner in which the common good is best subserved is not a
matter that can be measured by any constitutional yardstick -
it would depend on the economic and political philosophy of
the government. Revenue maximization is not the only way in
which the common gooq can be subserved. Where revenue G
maximization is the object of a policy, being considered qua
that resource at that point of time to be the best way to subserve
the common good, auction would be one of the preferable
methods, though not the only method. Where revenue
s2. (1972) 2 sec 788. H
428 SUPREME COURT REPORTS [2012] 9 S.C.R.
A maximization is not the object of a policy of distribution, the
question of auction would not arise. Revenue considerations
may assume secondary consideration to developmental
considerations.
120. Therefore, in conclusion, the submission that the
8
mandate of Article 14 is that any disposal of a natural resource
for commercial use must be for r>·venue maximization, and thus
by auction, is based neither on law nor on logic. There is no
constitutional imperative in ti1e matter of economic policies-
Article 14 does not pre-define any economic policy as a
C constitutional mandate. Even the mandate of 39(b) imposes no
restrictions on the means adopted to subserve the public good
and uses the broad term 'distribution', suggesting that the
methodology of distribution is not fixed. Economic logic
establishes that alienation/allocation of natural resources to the
D highest bidder may not necessarily be the only way to subseNe
the common good, and at times, may run counter to public good.
Hence, it needs little emphasis that disposal of all natural
resources through auctions is clearly not a constitutional
mandate.
E
LEGITIMATE DEVIATIONS FROM AUCTION
121. As a result, this Court has, on a number of occasions,
delivered judgments directing means for disposal of natural
resources other than auction for different resources in different
F circumstances. It would be profitable to refer to a few cases
and appreciate the reasons this Court has adopted for deviating
from the method of auction.
122. In M/s Kasturi Lal Lakshmi Reddy Vs. State of
G Jammu & Kashmir & Anr. 53 , while comparing the efficacy of
auction in promoting a domestic industry, P.N. Bhagwati, J.
observed: -
"22 .... If the State were giving tapping contract simpliciter
H 53. (1980) 4 sec 1.
RE: SPECIAL REFERENCE N0.1 OF 2012 429
[D.K. JAIN, J.]
there can be no doubt that the State would have to auction A
or invite tenders for securing the highest price, subject, of
course, to any other relevant overriding considerations of
public weal or interest, but in a case like this where the
State is allocating resources such as water, power, raw
materials etc. for the purpose of encouraging setting up B
of industries within the State, we do not think the State is
bound to advertise and tell the people that it wants a
particular industry to be set up within the State and invite
those interested to come up with proposals for the
purpose. The State may choose to do so, if it thinks fit and c
in a given situation, it may even turn out to be
advantageous for the State to do so, but if any private party
comes before the State and offers to set up an industry,
the State would not be committing breach of any
constitutional or legal obligation if it negotiates with such
D
party and agrees to provide resources and other facilities
for the purpose of setting up the industry. The State is not
obliged to tell such party: "Please wait I will first advertise,
wee whether any other offers are forthcoming and then after
considering all offers, decide whether I should let you set
E
up the industry" ... The State must be free in such a case to
negotiate with a private entrepreneur with a view to
inducing him to set up an industry within the State and if
the State enters into a contract with such entrepreneur for
providing resources and other facilities for setting up an
industry, the contract cannot be assailed as invalid so long F
as the State has acted bona fide, reasonably and in public
interest. If the terms and conditions of the contract or the
surrounding circumstances show that the State has acted
mala fide or out of improper or corrupt motive or in order
to promote the private interests of someone at the cost of G
the State, the court will undoubtedly interfere and strike
down State action as arbitrary, unreasonable or contrary
to public interest. But so long as the State action is bona
fide and reasonable, the court will not interfere merely on
H
430 SUPREME COURT REPORTS [2012] 9 S.C.R.
A the ground that no advertisement was given or publicity
made or tenders invited."
123. In Sachidanand Pandey (supra) after noticing Kasturi
Lal's case (supra), it was concluded as under:
B "40. On a consideration of the relevant cases cited at the
Bar the following propositions may be taken as well
established: State-owned or public-owned property is not
to be dealt with at the absolute discretion of the executive.
Certain precepts and principles have to be observed.
C Public interest is the paramount consideration. One of the
methods of securing the public interest, when it is
considered necessary to dispose of a property, is to sell
the property by public auction or by inviting tenders. Though
that is the ordinary rule, it is not an invariable rule. There
D may be situations where there are compelling reasons
necessitating departure from the rule but then the reasons
for the departure must be rational and should not be
suggestive of discrimination. Appearance of public justice
is as important as doing justice. Nothing should be done
E which gives an appearance of bias, jobbery or nepotism."
124. In Haji T.M. Hassan Rawther Vs. Kera/a Financial
Corpn. 54, after an exhaustive review of the law including the
decisions in Kasturi Lal (supra) and Sachidanand Pandey
(supra), it was held that public disposal of State owned
F properties is not the only rule. It was, inter-alia, observed that:
"14. The public property owned by the State or by any
instrumentality of the State should be generally sold by
public auction or by inviting tenders. This Court has been
G insisting upon that rule, not only to get the highest price for
the property but also to ensure fairness in the activities of
the State and public authorities. They should undoubtedly
act fairly. Their actions should be legitimate. Their dealings
H 54. (1988) 1 sec 166.
RE: SPECIAL REFERENCE N0.1 OF 2012 431
[D.K. JAIN, J.]
should be aboveboard. Their transactions should be A
without aversion or affection. Nothing should be suggestive
of discrimination. Nothing should be done by them which
gives an impression of bias, favouritism or nepotism.
Ordinarily these factors would be absent if the matter is
brought to public auction or sale by tenders. That is why B
the court repeatedly stated and reiterated that the State-
owned properties are required to be disposed of publicly.
But that is not the only rule. As 0. Chinnappa Reddy, J.
observed "that though that is the ordinary rule, it is not an
invariable rule". There may be situations necessitating c
departure from the rule, but then such instances must be
justified by compulsions and not by compromise. It must
be justified by compelling reasons and not by just
convenience."
Here, the Court added to the previous decisions and said D
that a blithe deviation from public disposal of resources would
not be tolerable; such a deviation must be justified by
compelling reasons and not by just convenience.
125. In M.P. Oil Extraction and Anr. Vs. State of M.P. & E
55
Ors. , this Court held as follows:
"45. Although to ensure fair play and transparency in State
action, distribution of largesse by inviting open tenders or
by public auction is desirable, it cannot be held that in no
F
case distribution of such largesse by negotiation is
permissible. In the instant case, as a policy decision
protective measure by entering into agreements with
selected industrial units for assured supply of sal seeds
at concessional rate has been taken by the Government.
The rate of royalty has also been fixed on some accepted G
principle of pricing formula as will be indicated hereafter.
Hence, distribution or allotment of sal seeds at the
determined royalty to the respondents and other units
55. (1997) 1 sec 592. H
432 SUPREME COURT REPORTS [2012] 9 S.C.R.
A covered by the agreements cannot be assailed. It is to be
appreciated that in this case. distribution by public auction
or by open tender may not achieve the purpose of the
policy of protective measure by way of supply of sal seeds
at concessional rate of royalty to the industrial units
B covered by the agreements on being selected on valid and
objective considerations."
126. In Netai Bag & Ors. Vs. State of WB. & Ors. 56, this
Court observed that non- floating of tenders or not holding of
public auction would, not in all cases, be deemed to be the
C result of the exercise of the executive power in an arbitrary
manner. It was stated:
"19 .... There cannot be any dispute with the proposition
that generally when any State land is intended to be
D transferred or the State largesse decided to be conferred,
resort should be had to public auction or transfer by way
of inviting tenders from the people. That would be a sure
method of guaranteeing compliance with the mandate of
Article 14 of the Constitution. Non-floating of tenders or not
E holding of public auction would not in all cases be deemed
to be the result of the exercise of the executive power in
an arbitrary manner. Making an exception to the general
rule could be justified by the State executive, if challenged
in appropriate proceedings. The constitutional courts
F cannot be expected to presume the alleged irregularities,
illegalities or unconstitutionality nor the courts can
substitute their opinion for the bona fide opinion of the
State executive. The courts are not concerned with the
ultimate decision but only with the fairness of the decision-
making process.
G
This Court once again pointed out that there can be
exceptions from auction; the ultimate test is only that of fairness
of the decision making process and compliance with Article 14
of the Constitution.
H 56. c2000) a sec 262.
RE: SPECIAL REFERENCE N0.1 OF 2012 433
[D.K. JAIN, J.]
127. In M & T Consultants, Secunderabad Vs. S. Y. A
Nawab 57 , this Court again reiterated that non- floating of tenders
does not always lead to the conclusion that the exercise of the
power is arbitrary:
"17. A careful and dispassionate assessment and
8
consideration of the materials placed on record does not
leave any reasonable impression, on the peculiar facts and
circumstances of this case, that anything obnoxious which
requires either public criticism or condemnation by courts
of law had taken place. It is by now well settled that non-
floating of tenders or absence of public auction or invitation C
alone is no sufficient reason to castigate the move or an
action of a public authority as either arbitrary or
unreasonable or amounting to mala fide or improper
exercise or improper abuse of power by the authority
concerned. Courts have always leaned in favour of D
sufficient latitude being left with the authorities to adopt
their own techniques of management of projects with
concomitant economic expediencies depending upon the
exigencies of a situation guided by appropriate financial
policy in the best interests of the authority motivated by E
public interest as well in undertaking such ventures."
128. In Villianur lyarkkai Padukappu Maiyam Vs. Union
of India & Ors. 58, a three Judge Bench of this Court was
concerned with the development of the Port of Pondicherry F
where a contractor had been selected without floating a tender
or holding public auction. It was held as under:
"164. The plea raised by the learned counsel for the
appellants that the Government of Pondicherry was
arbitrary and unreasonable in switching the whole public G
tender process into a system of personal selection and,
therefore, the appeals should be accepted, is devoid of
57. (2003) a sec 100.
58. (2009) 7 sec 561. H
434 SUPREME COURT REPORTS (2012] 9 S.C.R.
A merits. It is well settled that non-floating of tenders or not
holding of public auction would not in all cases be deemed
to be the result of the exercise of the executive power in
an arbitrary manner.
171. In a case like this where the State is allocating
B
resources such as water, power, raw materials, etc. for the
purpose of encouraging development of the port, this
Court does not think that the State is bound to advertise
and tell the people that it wants development of the port in
a particular manner and invite those interested to come up
c with proposals for the purpose. The State may choose to
do so if it thinks fit and in a given situation it may turn out
to be advantageous for the State to do so, but if any private
party comes before the State and offers to develop the
port, the State would not be committing breach of any
D constitutional obligation if it negotiates with such a party
and agrees to provide resources and other facilities for the
purpose of development of the port."
129. Hence, it is manifest that there is no constitutional
E mandate in favour of auction under Article 14. The Government
has repeatedly deviated from the course of auction and this
Court has repeatedly upheld such actions. The judiciary tests
such deviations on the limited scope of arbitrariness and
fairness under Article 14 and its role is limited to that extent.
F Essentially whenever the object of policy is anything but revenue
maximization, the Executive is seen to adopt methods other
than auction.
130. A fortiori, besides legal logic, mandatory auction may
be contrary to economic logic as well. Different resources may
G require different treatment. Very often, exploration and
exploitation contracts are bundled together due to the
requirement of heavy capital in the discovery of natural
resources. A concern would risk undertaking such exploration
and incur heavy costs only if it was assured utilization of the
H resource discovered; a prudent business venture, would not like
RE: SPECIAL REFERENCE N0.1 OF 2012 435
[D.K. JAIN, J.]
to incur the high costs involved in exploration activities anu then A
compete for that resource in an open auction. The logic is
similar to that applied in patents. Firms are given incentives to
invest in research and development with the promise of
exclusive access to the market for the sale of that invention.
Such an approach is economically and legally sound and B
sometimes necessary to spur research and development.
Similarly, bundling exploration and exploitation contracts may
be necessary to spur growth in a specific industry.
131. Similar deviation from auction cannot be ruled out C
when the object of a State policy is to promote domestic
development of an industry, like in Kasturi Lal's case,
discussed above. However, these examples are purely
illustrative in order to demonstrate that auction cannot be the
sole criteria for alienation of all natural resources.
D
POTENTIAL OF ABUSE
132. It was also argued that even if the method of auction
is not a mandate under Article 14, it must be the only
permissible method, due to the susceptibility of other methods E
to abuse. This argument, in our view, is contrary to an
established position of law on the subject cemented through a
catena of decisions.
133. In R.K. Garg Vs. Union of India & Ors. 59, Justice P.
N. Bhagwati, speaking for a Constitution Bench of five learned F
Judges, held:
"8 .... The Court must always remember that "legislation is
directed to practical problems, that the economic
mechanism is highly sensitive and complex, that many G
problems are singular and contingent, that laws are not
abstract propositions and do not relate to abstract units
and are not to be measured by abstract symmetry"; "that
exact wisdom and nice adaption of remedy are not always
59. (1981) 4 sec 675. H
436 SUPREME COURT REPORTS [2012] 9 S.C.R.
A possible" and that "judgment is largely a prophecy based
on meager and uninterpreted experience". Every
legislation particularly in economic matters is essentially
empiric and it is based on experimentation or what one
may call trial and error method and therefore it cannot
B provide for all possible situations or anticipate all possible
abuses. There may be crudities and inequities in
complicated experimental economic legislation but on that
account alone it cannot be struck down as invalid. The
courts cannot, as pointed out by the United States
c Supreme Court in Secretary of Agriculture v. Central Reig
Refining Company6° be converted into tribunals for relief
from such crudities and inequities. There may even be
possibilities of abuse, but that too cannot of itself be a
ground for invalidating the legislation, because it is not
possible for any legislature to anticipate as if by some
D
divine prescience, distortions and abuses of its legislation
which may be made by those subject to its provisions and
to provide against such distortions and abuses. Indeed,
howsoever great may be the care bestowed on its framing,
it is difficult to conceive of a legislation which is not
E
capable of being abused by perverted human ingenuity.
The Court must therefore adjudge the constitutionality of
such legislation by the generality of its provisions and not
by its crudities or inequities or by the possibilities of abuse
of any of its provisions. If any crudities, inequities or
F possibilities of abuse come to light, the legislature Gan
always step in and enact suitable amendatory legislation.
That is the essence of pragmatic approach which must
guide and inspire the legislature in dealing with complex
economic issues."
G
134. Then again, in D. K. Trivedi & Sons & Ors. Vs. State
of Gujarat & Ors. 61 , while upholding the constitutional validity
60. 94 L Ed 381 : 338 US 604 (1950).
H 61. (1986) Supp sec 20.
RE: SPECIAL REFERENCE N0.1 OF 2012 437
[D.K. JAIN, J.]
of Section 15(1) of the MMRD Act, this Court explained the A
principle in the following words:
"50. Where a statute confers discretionary powers upon
the executive or an administrative authority, the validity or
constitutionality of such power cannot be judged on the
B
assumption that the executive or such authority will act in
an arbitrary manner in the exercise of the discretion
conferred upon it. If the executive or the administrative
authority acts in an arbitrary manner, its action would be
bad in law and liable to be struck down by the courts but
the possibility of abuse of power or arbitrary exercise of C
power cannot invalidate the statute conferring the power
or the power which has been conferred by it."
135. Therefore, a potential for abuse cannot be the basis
for striking down a method as ultra vires the Constitution. It is D
the actual abuse itself that must be brought before the Court
for being tested on the anvil of constitutional provisions. In fact,
it may be said that even auction has a potential of abuse, like
any other method of allocation, but that cannot be the basis of
declaring it as an unconstitutional methodology either. These E
drawbacks include cartelization, "winners curse" (the
phenomenon by which a bidder bids a higher, unrealistic and
unexecutable price just to surpass the competition; or where a
bidder, in case of multiple auctions, bids for all the resources
and ends up winning licenses for exploitation of more resources F
than he can pragmatically execute), etc. However, all the same,
auction cannot be called ultra vires for the said reasons and
continues to be an attractive and preferred means of disposal
of natural resources especially when revenue maximization is
a priority. Therefore, neither auction, nor any other method of G
disposal can be held ultra vires the Constitution, merely
because of a potential abuse.
JUDICIAL REVIEW OF POLICY DECISIONS
136. The learned Attorney General also argued that H
438 SUPREME COURT REPORTS (2012] 9 S.C.R.
A dictating a method of distribution for natural resources violates
the age old established principle of non-interference by the
judiciary in policy matters. Even though the contours of the
power of judicial review of policy decisions has become a trite
subject, as the Courts have repeatedly delivered opinions on
B it, we wish to reiterate some of the principles in brief, especially
with regard to economic policy choices and pricing.
137. One of the earliest pronouncements on the subject
came from this Court in Rustom Cavasjee Cooper Vs. Union
of lndia 62 (commonly known as "Bank Nationalization Case")
C wherein this Court held that it is not the forum where conflicting
policy claims may be debated; it is only required to adjudicate
the legality of a measure which has little to do with relative
merits of different political and economic theories. The Court
observed:
D
"63. This Court is not the forum in which these conflicting
claims may be debated. Whether there is a genuine need
for banking facility in the rural sector, whether certain
classes of the community are deprived of the benefit of the
E resources of the banking industry, whether administration
by the Government of the commercial banking sector will
not prove beneficial to the community and will lead to
rigidity in the administration, whether the Government
administration will eschew the profit-motive, and even if it
F be eschewed, there will accrue substantial benefits to the
public, whether an undue accent on banking as a means
of social regeneration, especially in the backw~rd areas,
is a doctrinaire approach to a rational order of priorities
for attaining the national objectives enshrined in our
Constitution, and whether the policy followed by the
G
Government in office or the policy propounded by its
opponents may reasonably attain the national objectives
are matters which have little relevance in determining the
legality of the measure. It is again not for this Court to
H 62. (1970) 1 sec 248.
RE: SPECIAL REFERENCE N0.1 OF 2012 439
[D.K. JAIN, J.]
consider the relative merits of the different political theories A
or economic policies. The Parliament has under Entry 45,
List I the power to legislate in respect of banking and other
commercial activities of the named banks necessarily
incidental thereto: it has the power to legislate for acquiring
the undertaking of the named banks under Entry 42, List B
Ill. Whether by the exercise of the power vested in the
Reserve Bank under the pre-existing laws, results could be
achieved which it is the object of the Act to achieve, is, in
our judgment, not relevant in considering whether the Act
amounts to abuse of legislative power. This Court has the c
power to strike down a law on the ground of want of
authority, but the Court will not sit in appeal over the policy
of the Parliament in enacting a law. The Court cannot find
fault with the Act merely on the ground that it is inadvisable
to take over the undertaking of banks which, it is said by 0
the petitioner, by thrift and efficient management had set
up an impressive and efficient business organization
serving large sectors of industry."
138. In R.K. Garg (supra), this Court even observed that
greater judicial deference must be shown towards a law relating E.
to economic activities due to the complexity of economic
problems and their fulfillment through a methodology of trial and
error. As noted above, it was also clarified that the fact that an
economic legislation may be troubled by crudities, inequities,
uncertainties or the possibility of abuse cannot be the basis for F
striking it down. The following observations which refer to a
couple of American Supreme Court decisions are a limpid
enunciation on the subject :
"8. Another rule of equal importance is that laws relating G
to economic activities should be viewed with greater
latitude than laws touching civil rights such as freedom of
speech, religion etc. It has been said by no less a person
than Holmes, J., that the legislature should be allowed
some play in the joints, because it has to deal with
H
440 SUPREME COURT REPORTS [2012] 9 S.C.R.
A complex problems which do not admit of solution through
any doctrinaire or strait-jacket formula and this is
particularly true in case of legislation dealing with economic
matters, where, having regard to the nature of the problems
required to be dealt with, greater play in the joints has to
B be allowed to the legislature. The court should feel more
inclined to give judicial deference to legislative judgment
in the field of economic regulation than in other areas
where fundamental human rights are involved. Nowhere
has this admonition been more felicitously expressed than
c in Morey v. Doud63 where Frankfurter, J., said in his
inimitable style:
'In the utilities, tax and economic regulation cases,
there are good reasons for judicial self-restraint if
not judicial deference to legislative judgment. The
D legislature after all has the affirmative responsibility.
The courts have only the power to destroy, not to
reconstruct. When these are added to the
complexity of economic regulation, the uncertainty,
the liability to error, the bewildering conflict of the
E experts, and the number of times the judges have
been overruled by events - self-limitation can be
seen to be the path to judicial wisdom and
institutional prestige and stability' ... "
F 139. In Premium Granites & Anr. Vs. State of TN. & Ors. 64
this Court clarified that it is the validity of a law and not its
efficacy that can be challenged:
"54. It is not the domain of the court to embark upon
unchartered ocean of public policy in an exercise to
G consider as to whether a particular public policy is wise
or a better public policy can be evolved. Such exercise
must be left to the discretion of the executive and
63. 354 us 457.
H 64. (1994) 2 sec 691.
RE: SPECIAL REFERENCE N0.1 OF 2012 441
[D.K. JAIN, J.]
legislative authorities as the case may be. The court is A
called upon to consider the validity of a public policy only
when a challenge is made that such policy decision
infringes fundamental rights guaranteed by the Constitution
of India or any other statutory right..."
B
140. In Delhi Science Forum & Ors. Vs. Union oflndia &
5
Anfl . a Bench of three learned Judges of this Court, while
rejecting a claim against the opening up of the telecom sector
reiterated that the forum for debate and discourse over the
merits and demerits of a policy is the Parliament. It restated
that the services of this Court are not sought till the legality of C
the policy is disputed, and further, that no direction can be given
or be expected from the courts, unless while implementing such
policies, there is violation or infringement of any of the
constitutional or statutory provisions. It held thus:
D
"7. What has been said in respect of legislations is
applicable even in respect of policies which have been
adopted by Parliament. They cannot be tested in Court of
Law. The courts cannot express their opinion as to whether
at a particular juncture or under a particular situation E
prevailing in the country any such national policy should
have been adopted or not. There may be views and views,
opinions and opinions which may be shared and believed
by citizens of the country including the representatives of
the people in Parliament. But that has to be sorted out in
F
Parliament which has to approve such policies ... "
141. In BALCO Employees' Union (Regd.) Vs. Union of
India & Ors. 66 , this Court further pointed out that the Court ought
to stay away from judicial review of efficacy of policy matters,
not only because the same is beyond its jurisdiction, but also G
because it lacks the necessary expertise required for such a
task. Affirming the previous views of this Court, the Court
65. (1996) 2 sec 405.
66. (2002) 2 sec 333. H
442 SUPREME COURT REPORTS [2012] 9 S.C.R.
A observed that while dealing with economic legislations, the
Courts, while not jettisoning its jurisdiction to curb arbitrary
action or unconstitutional legislation, should interfere only in
those cases where the view reflected in the legislation is not
possible to be taken at all. The Court went on to emphasize
8 that unless the economic decision, based on economic
expediencies, is demonstrated to be so violative of
constitutional or legal limits on power or so abhorrent to reason,
that the courts would decline to interfere.
142. In BALCO (supra), the Court took notice of the
C judgment in Peerless General Finance and Investment Co. Ltd.
& Anr. Vs. Reserve Bank of lndia 67 and observed that some
matters like price fixation are based on such uncertainties and
dynamics that even experts face difficulty in making correct
projections, making it all the more necessary for this Court to
D exercise non- interference:
"31. The function of the Court is to see that lawful authority
is not abused but not to appropriate to itself the task
entrusted to that authority. It is well settled that a public
body invested with statutory powers must take care not to
E
exceed or abuse its power. It must keep within the limits
of the authority committed to it. It must act in good faith and
it must act reasonably. Courts are not to interfere with
economic policy which is the function of experts. It is not
the function of the courts to sit in judgment over matters of
F economic policy and it must necessarily be left to the
expert bodies. In such matters even experts can seriously
and doubtlessly differ. Courts cannot be expected to
decide them without even the aid of experts."
G 143. In an earlier case in M/s Prag Ice & Oil Mills & Anr.
Vs. Union of lndia68 , this Court had observed as under: (SCC
p. 478, Para 24)
67. (1992) 2 sec 343.
H 68. [19781 3 sec 459.
RE: SPECIAL REFERENCE. N0.1 OF 2012 443
[D.K. JAIN, J.]
"We do not think that it is the function of this Court or of A
any court to sit in judgment over such matters of economic
policy as must necessarily be left to the government of the
day to decide. Many of them, as a measure of price fixation
must necessarily be, are matters of prediction of ultimate
results on which even experts can seriously err and B
doubtlessly by differ. Courts can certainly not be expected
to decide them without even the aid of experts."
144. In State of Madhya Pradesh Vs. Narmada Bachao
Ando/an & Anr. 69 , this Court said that the judiciary cannot C
engage in an exercise of comparative analysis over the
fairness, logical or scientific basis, or wisdom of a policy. It held
that the Court cannot strike down a policy decision taken by
the Government merely because it feels that another decision
would have been fairer, or more scientific or logical, or wiser.
The wisdom and advisability of the policies are ordinarily not D
amenable to judicial review unless the policies are contrary to
statutory or constitutional provisions or arbitrary or irrational or
an abuse of power.
145. Mr. Subramanian Swamy also brought to our notice E
a Report on Allocation of Natural Resources, prepared by a
Committee, chaired by Mr. Ashok Chawla (hereinafter referred
to as the "Chawla Committee Report"), which has produced a
copious conceptual framework for the Government of India on
the allocation and pricing of scarce natural resources viz. coal, F
minerals, petroleum, natural gas, spectrum, forests, land and
water. He averred to observations of the report in favour of
auction as a means of disposal. However, since the opinion
rendered in the Chawla Committee Report is pending
acceptance by the Government, it would be inappropriate for G
us to place judicial reliance on it. Besides, the Report conducts
an economic, and not legal, analysis of the means of disposal
of natural resources. The purpose of this Reference would be
69. (2011) 7 sec 639. H
444 SUPREME COURT REPORTS [2012) 9 S.C.R.
A best served if this Court gave a constitutional answer rather
than economic one.
146. To summarize in the context of the present
Reference, it needs to be emphasized that this Court cannot
conduct a comparative study of the various methods of
8
distribution of natural resources and suggest the most
efficacious mode, if there is one universal efficacious method
in the first place. It respects the mandate and wisdom of the
executive for such matters. The methodology pertaining to
C disposal of natural resources is clearly an economic policy. It
entails intricate economic choices and the Court lacks the
necessary expertise to make them. As has been repeatedly
said, it cannot, and shall not, be the endeavour of this Court to
evaluate the efficacy of auction vis-a-vis other methods of
disposal of natural resources. The Court cannot mandate one
D method to be followed in all facts and circumstances. Therefore,
auction, an economic choice of disposal of natural resources,
is not a constitutional mandate. We may, however, hasten to
add that the Court can test the legality and constitutionality of
these methods. When questioned, the Courts are entitled to
E analyse the legal validity of different means of distribution and
give a constitutional answer as to which methods are ultra vires
and intra vires the provisions of the Constitution. Nevertheless,
it cannot and will not compare which policy is fairer than the
other, but, if a policy or law is patently unfair to the extent that it
F falls foul of the fairness requirement of Article 14 of the
Constitution, the Court would not hesitate in striking it down.
147. Finally, market price, in economics, is an index of the
value that a market prescribes to a good. However, this
G valuation is a function of several dynamic variables; it is a
science and not a law. Auction is just one of the several price
discovery mechanisms. Since multiple variables are involved
in such valuations, auction or any other form of competitive
bidding, cannot constitute even an economic mandate, much
less a constitutional mandate.
H
RE: SPECIAL REFERENCE N0.1 OF 2012 445
[D.K. JAIN, J.]
148. In our opinion, auction despite being a more A
preferable method of alienation/allotment of natural resources,
cannot be held to be a constitutional requirement or limitation
for alienation of all natural resources and therefore, every
method other than auction cannot be struck down as ultra-vires
the constitutional mandate. B
149. Regard being had to the aforesaid precepts, we have
opined that auction as a mode cannot be conferred the status
of a constitutional principle. Alienation of natural resources is
a policy decision, and the means adopted for the same are C
thus, executive prerogatives. However, when such a policy
decision is not backed by a social or welfare purpose, and
precious and scarce natural resources are alienated for
commercial pursuits of profit maximizing private entrepreneurs,
adoption of means other than those that are competitive and
maximize revenue may be arbitrary and face the wrath of Article D
14 of the Constitution. Hence, rather than prescribing or
proscribing a method, we believe, a judicial scrutiny of methods
of disposal of natural resources should depend on the facts and
circumstances of each case, in consonance with the principles
which we have culled out above. Failing which, the Court, in E
exercise of power of judicial review, shall term the executive
action as arbitrary, unfair, unreasonable and capricious due to
its antimony with Article 14 of the Constitution.
150. In conclusion, our answer to the first set of five F
questions is that auctions are not the only permissible method
for disposal of all natural resources across all sectors and in
all circumstances.
151. As regards the remaining questions, we feel that G
answer to these questions would have a direct bearing on the
mode of alienation of Spectrum and therefore, in light of the
statement by the learned Attorney General that the Government
is not questioning the correctness of judgment in the 2G Case,
H
446 SUPREME COURT REPORTS (2012] 9 S.C.R.
A we respectfully decline to answer these questions. The
Presidential Reference is answered accordingly.
152. This opinion shall be transmitted to the President in
accordance with the procedure prescribed in Part V of the
8 Supreme Court Rules, 1966.
JAGDISH SINGH KHEHAR, J. 1. I have had the privilege
of perusing the opinion rendered by my esteemed brother, D.K.
Jain, J. Every bit of the opinion (which shall hereinafter be
C referred to by me, as the "main opinion") is based on settled
propositions of law declared by this Court. There can, therefore,
be no question of any disagreement therewith. I fully endorse
the opinion expressed therein.
2. The first question posed in the Presidential reference,
D is in fact the reason, for my having to record, some other
nuances on the subject whereof advice has been sought. The
first question in the Presidential reference requires the
Supreme Court to tender advice on, "Whether the only
permissible method for disposal of all natural resources across
E all sectors and in all circumstances, is by the conduct of
auctions?". It is of utmost importance to understand, the tenor
of the first question in the Presidential reference. Take for
instance a hypothetical situation where, the legality of 100
instances of disposal of different types of natural resources is
F taken up for consideration. If the first question is taken in its
literal sense, as to whether the method of disposal of all natural
resources in all circumstances is by auction alone, then, even
if 99 out of the aforesaid 100 different natural resources are
such, which can only be disposed of by way of auction, the
G answer to the first question would still be in the negative. This
answer in the negative would give the erroneous impression,
that it is not necessary to dispose of natural resources by way
of auction. Surely, the Presidential reference has not been
made, to seek such an innocuous advice. The instant reference
·H has been made despite the Central Government being alive to
RE: SPECIAL REFERENCE N0.1 OF 2012 447
[JAGDISH SINGH KHEHAR, J.]
the fact, that there are natural resources which can only be A
disposed of by way of auction. A mining lease for coal under
Section 11A of the Mines and Minerals (Development and
Regulation) Act, 1957 can be granted, only by way of selection
u.rough auction by competitive bidding. Furthermore, the
learned Attorney General for India informed us, about a B
conscious decision having been taken by the Central
Government to henceforth allot spectrum only through
competitive bidding by way of auction. Such instances can be
multiplied. It is therefore obvious, that Government is alive to
the fact, that disposal of some natural resources have to be c
made only by auction. If that is so, the first question in the
reference does not seek a literal response. The first question
must be understood to seek this Court's opinion on whether
there are circumstances in which natural resources ought to be
disposed of only by auction. Tendering an opinion, without a D
response to this facet of the matter, would not make the seeker
of advice, any wiser. It is this aspect alone, which wiH be the
main subject of focus of my instant opinion.
3. Before venturing into the area of consideration
expressed in the foregoing paragraph, it is necessary to record, E
that there was extensive debate during the course of hearing,
on whether, maximization of revenue must be the sole
permissible consideration, for disposal of all natural resources,
across all sectors and in all circumstances. During the course
of this debate, the learned Attorney General for India F
acknowledged, that auction by way of competitive bidding, was
certainly an indisputable means, by which maximization of
revenue returns is assured. It is not as if, one would like to bind
the learned Attorney General to the acquiesced proposition.
During the course of the days and weeks of erudite debate, G
learned counsel emphasized, that disposal of assets by
processes of tender, tender-cum-auction and auction, could
assure maximization of revenue returns. Of course, there are
a large variety of tender and auction processes, each one with
its own nuances. And we were informed, that a rightful choice, H
448 SUPREME COURT REPORTS [2012] 9 S.C.R.
A would assure maximization of revenue returns. The term
"auction" expressed in my instant opinion, may therefore be
read as a means to maximize revenue returns, irrespective of
whether the means adopted should technically and correctly be
described as tender, tender-cum-auction, or auction.
B
4. The concept of equality before the law and equal
protection of the laws, emerges from the fundamental right
expressed in Article 14 of the Constitution of India. Equality is
a definite concept. The variation in its understanding may at best
C have reference to the maturity and evolution of the nation's
thought. To start with, breach of equality was a plea advanced
by individuals claiming fair treatment. Challenges were raised
also on account of discriminatory treatment. Equality was sought
by those more meritorious, when benefits were bestowed on
those with lesser caliber. Gradually, judicial intervention came
D to be sought for equitable treatment, even for a section of the
society put together. A jurisdiction, which in due course, came
to be described as public interest litigation. It all started with a
demand for the basic rights for respectable human existence.
Over the years, the concept of determination of societal rights,
E has traversed into different directions and avenues. So much
so, that now rights in equity, sometimes even present situations
of conflict between individual rights and societal rights. The
present adjudication can be stated to be a dispute of such
nature. In a maturing society, individual rights and plural rights
F have to be balanced, so that the oscillating pendulum of rights,
fairly and equally, recognizes their respective parameters. For
a country like India, the pendulum must be understood to
balance the rights of one citizen on the one side, and
124, 14,91,960 (the present estimated population of India)
G citizens of the country on the other. The true effect of the Article
14 of the Constitution of India is to provide equality before the
law and equal protection of the laws not only with reference to
individual rights, but also by ensurinQ that its citizens on the
other side of the balance are likewise not deprived of their right
H to equality before the law, and their right to equal protection of
RE: SPECIAL REFERENCE N0.1 OF 2012 449
[JAGDISH SINGH KHEHAR, J.]
the laws. An individual citizen cannot be a beneficiary, at the A
cost of the country (the remaining 124, 14,91,960 citizens) i.e.,
the plurality. Enriching one at the cost of all others would amount
to deprivation to the plurality i.e., the nation itself. The gist of
the first question in the Presidential reference, raises the issue
whether ownership rights over the nation's natural resources, B
vest in the citizens of the country. An answer to the instant issue
in turn would determine, whether or not it is imperative for the
executive while formulating a policy for the disposal of natural
resources, to ensure that it subserves public good and public
interest. c
5. The introduction and acceptance of public interest
litigation as a jurisprudential concept is a matter of extensive
debate in India, and even more than that, outside India. This
concept brings into focus the rights of the plurality (as against
individual's right) specially when the plurality is, for one or the D
other reason, not in a position to seek redressal of its
grievances. This inadequacy may not always emerge from
financial constrains. It may sometimes arise out of lack of
awareness. At other times merely from the overwhelming might
of executive authority. The jurisprudential thought in this country, E
after the emergence of public interest litigation, is seeking to
strike a balance between individual rights and the rights of the
plurality. After all, all natural resources are the nation's collective
wealth. This Court has had the occasion over the last few
decades, to determine rights of citizens with reference to natural F
resources. The right of an individual citizen to those assets, as
also, the rights of the remaining citizens of the country, have
now emerged on opposite sides in a common litigation. One
will endeavour to delineate the legal position expressed in
decisions rendered by this Court, on issues relatable to disposal G
of resources by the State, to determine whether the instant
issue stands settled, by law declared by this Court.
6(a) First of all reference was made to the decision of this
Court in S.G. Jaisinghani Vs. Union of India & Ors., AIR 1967 H
450 SUPREME COURT REPORTS [2012) 9 S.C.R.
A SC 1427, wherein this Court observed as under:
"14. In this context it is important to emphasize that the
absence of arbitrary power is the first essential of the rule
of law upon which our whole constitutional system is
based. In a system governed by rule of law, discretion,
B
when conferred upon executive authorities, must be
confined within clearly defined limits. The rule of law from
this point of view means that decisions should be made
by the application of known principles and rules and, in
general, such decisions should be predictable and the
c citizen should know where he is. If a decision is taken
without any principle or without any rule it is unpredictable
and such a decision is the antithesis of a decision taken
in accordance with the Rule of law. (See Dicey - Law of
the Constitution - 10th Edn., Introduction ex). "Law has
D reached its finest moments," stated Douglas, J. in United
States v. Wunderlich, (1951) 342 US 98, ''when it has freed
man from the unlimited discretion of some ruler .... Where
discretion, is absolute, man has always suffered." It is in
this sense that the rule of law may be said to be the sworn
E enemy of caprice. Discretion, as Lord Mansfield slated it
in classic terms in the case of John Wilkes, (1770) 4 Burr
2528 at p. 2539 "means sound discretion guided by law.
It must be governed by Rule, not by humour: it must not be
arbitrary, vague, and fanciful."
F
(emphasis is mine)
In the aforesaid case, it came to be emphasized that
executive action should have clearly defined limit~ and should
be predictable. In other words, the man on the street should
G know why the decision has been taken in favour of a particular
party. What came to be impressed upon was, that lack of
transparency in the decision making process would render it
arbitrary.
H (b) Also cited for our consideration was the judgment in
RE: SPECIAL REFERENCE N0.1 OF 2012 451
[JAGDISH SINGH KHEHAR, J.]
Rashbihari Panda etc. Vs. State of Orissa (1969) 1 SCC 414. A
In this case it was canvassed on behalf of the appellants, that
the machinery devised by the Government for sale of Kendu
leaves in which they had acquired a trade monopoly, was
violative of the fundamental rights guaranteed under Articles 14
and 19(1 )(g) of the Constitution. It was pointed out, that in the B
scheme of events the purchasers were merely nominees of the
agents. It is also contended, that after the Supreme Court had
struck down the policy under which the agents were to carry on
business in Kendu leaves on their own and to make profit for
themselves, the Government to help their party-men set up a c
body of persons who were to be purchasers to whom the
monopoly sales were to be made at concessional rates and
that the benefit which would have otherwise been earned by the
State would now get diverted to those purchasers. It was held:
"15. Section 10 of the Act is a counterpart of Section 3 D
and authorises the Government to sell or otherwise
dispose of Kendu leaves in such manner as the
Government may direct. If the monopoly of purchasing
Kendu leaves by Section 3 is valid, insofar as it is intended
to be administered only for the benefit of the State, the sale E
or disposal of Kendu leaves by the Government must also
be in the public interest and not to serve the private interest
of any person or class of persons. It is true that it is for
the Government, having regard to all the circumstances,
to act as a prudent businessman would, and to sell or F
otherwise dispose of Kendu /eaves purchased under the
monopoly acquired under Section 3, but the profit
resulting from the sale must be for the public benefit and
not for private gain. Section 11 which provides that out of
the net profits derived by the Government from the trade G
in Kendu leaves ari amount not less than one half is to be
paid to the Samitis and Gram Panchayats emphasises the
concept that the machinery of sale or disposal of Kendu
leaves must also be quashed to serve the public interest.
If the scheme of disposal creates a class of middlemen H
452 SUPREME COURT REPORTS [2012] 9 S.C.R.
A who would purchase from the Government Kendu leaves
at concessional rates and would earn large profits
disproportionate to the nature of the service rendered or
duty performed by them, it cannot claim the protection
of Article 19(6)(ii).
B
16. Section 10 leaves the method of sale or disposal of
Kendu leaves to the Government as they think fit. The
action of the Government if conceived and executed in
the interest of the general public is not open to judicial
scrutiny. But it is not given to the Government thereby to
c create a monopoly in favour of third parties from their own
monopoly.
17. Validity of the schemes adopted by the Government
of Orissa for sale of Kendu leaves must be adjudged in
D the light of Article 19(1)(g) and Article 14. Instead of inviting
tenders the Government offered to certain old contractors
the option to purchase Kendu leaves for the year 1968 on
terms mentioned therein. The reason suggested by the
Government that these offers were made because the
E purchasers had carried out their obligations in the previous
year to the satisfaction of the Government is not of any
significance. From the affidavit filed by the State
Government it appears that the price fetched at public
auctions before and after January 1968, were much
F higher than the prices at which Kendu leaves were
offered to the old contractors. The Government realised
that the scheme of offering to enter into contracts with the
old licensees and to renew their terms was open to grave
objection, since it sought arbitrarily to· exclude many
persons interested in the trade. The Government then
G
decided to invite offers for advance purchases of Kendu
leaves but restricted the invitation to those individuals who
had carried out the contracts in the previous year without
default and to the satisfaction of the Government. By the
new scheme instead of the Government making an offer,
H
RE: SPECIAL REFERENCE N0.1 OF 2012 453
[JAGDISH SINGH KHEHAR, J.]
the existing contractors were given the exclusive right to A
make offers to purchase Kendu leaves. But insofar as the
right to make tenders for the purchase of Kendu leaves
was restricted to those persons who had obtained
contracts in the previous year the scheme was open to the
same objection. The right to make offers being open to B
a limited class of persons it effectively shut out all other
persons carrying on trade in Kendu leaves and also new
entrants into that business. It was ex facie discriminatory,
and imposed unreasonable restrictions upon the right of
persons other than existing contractors to carry on c
business. In our view, both the schemes evolved by the
Government were violative of the fundamental right of the
petitioners under Article 19(1)(g) and Article 14 because
the schemes gave rise to a monopoly in the trade in
Kendu leaves to certain traders, and singled out other
0
traders for discriminatory treatment.
18. The classification based on the circumstance that
certain existing contractors had carried out their
obligations in the previous year regularly and to the
satisfaction of the Government is not based on any real E
and substantial distinction bearing a just and reasonable
relation to the object sought to be achieved i.e. effective
execution of the monopoly in the public interest. Exclusion
of all persons interested in the trade, who were not in the
previous year licensees is ex facie arbitrary, it had no direct F
relation to the object of preventing exploitation of pluckers
and growers of Kendu leaves, nor had it any just or
reasonable relation to the securing of the full benefit from
the trade to the State.
G
19. Validity of the Jaw by which the State assumed the
monopoly to trade in a given commodity has to be judged
by the test whether the entire benefit arising therefrom is
to enure to the State, and the monopoly is not used as a
cloak for conferring private benefit upon a limited class
H
454 SUPREME COURT REPORTS [2012] 9 S.C.R.
A of persons. The scheme adopted by the Government first
of offering to enter into contracts with certain named
licensees, and later inviting tenders from licensees who
had in the previous year carried out their contracts
satisfactorily is liable to be adjudged void on the ground
B that it unreasonably excludes traders in Kendu leaves from
carrying on their business. The scheme of selling Kendu
leaves to selected purchasers or of accepting tenders only
from a specified class of purchasers was not "integrally
and essentially" connected with the creation of the
c monopoly and was not on the view taken by this Court in
Akadasi Padhan case, (1963) Supp. 2 SCC 691,
protected by Article 19(6)(ii): it had therefore to satisfy the
requirement of reasonableness under the first part of
Article 19(6). No attempt was made to support the scheme
on the ground that it imposed reasonable restrictions on
D
the fundamental rights of the traders to carry on business
in Kendu leaves. The High Court also did not consider
whether the restrictions imposed upon persons excluded
from the benefit of trading satisfied the test of
reasonableness under the first part of Article 19(6). The
E High Court examined the problem from the angle whether
the action of the State Government was vitiated on account
of any oblique motive, and whether it was such as a
prudent person carrying on business may adopt.
F 20. No explanation has been attempted on behalf of the
State as to why an offer made by a well known
manufacturer of bidis interested in the trade to purchase
the entire crop of Kendu leaves for the year 1968 for
rupees three crores was turned down. If the interests of
G the State alone were to be taken into consideration, the
State stood to gain more than rupees one crore by
accepting that offer. We are not suggesting that merely
because that offer was made, the Government was bound
to accept it. The Government had to consider, as prudent
businessman, whether, having regard to the
H
RE: SPECIAL REFERENCE N0.1 OF 2012 455
[JAGDISH SINGH KHEHAR, J.]
circumstances, it should accept the offer, especially in the A
lioht of the financial position of the offeror, the security
which he was willing to give and the effect which the
acceptance of the offer may have on the other traders and
the general public interest.
B
21. The learned Judges of the High Court have observed
that in their view the exercise of the discretion was not
shown to be arbitrary, nor was the action shown to be
lacking in bona tides. But that conclusion is open to
criticism that the Government is not shown to have C
considered the prevailing prices of Kendu leaves about
the time when offers were made, the estimated crop of
Kendu leaves, the conditions in the market and the
likelihood of offerers at higher prices carrying out their
obligations, and whether it was in the interests of the State
to invite tenders in the open market from all persons D
whether they had or had not taken contracts in the previous
year. If the Government was anxious to ensure due
performance by those who submitted tenders for purchase
of Kendu leaves, it was open to the Government to devise
adequate safeguards in that behalf. In our judgment, the E
plea that the action of the Government was bona fide
cannot be an effective answer to a claim made by a
citizen that his fundamental rights were infringed by the
action of the Government, nor can the claim of the
petitioners be defeated on the plea that the Government F
in adopting the impugned scheme committed an error of
judgment.
22. That plea would have assisted the Government if the
action was in law valid and the objection was that the G
Government erred in the exercise of its discretion. It is
unnecessary in the circumstances to consider whether the
Government acted in the interest of their party-men and to
increase party funds in devising the schemes for sale of
Kendu leaves in 1968.
H
456 SUPREME COURT REPORTS [2012] 9 S.C.R.
A 23. During the pendency of these proceedings the entire
year for which the contracts were given has expired. The
persons to whom the contracts were given are not before
us, and we cannot declare the contracts which had been
entered into by the Government for the sale of Kendu
B leaves for the year 1968 unlawful in these proceedings.
Counsel for the appellants agrees that it would be
sufficient if it be directed that the tenders for purchase of
Kendu leaves be invited by the Government in the next
season from all persons interested in the trade. We trust
c that in accepting tenders, the State Government will act
in the interest of the general public and not of any class
of traders so that in the next season the State may get
the entire benefit of the monopoly in the trade in Kendu
leaves and no disproportionate share thereof may be
diverted to any private agency. Subject to these
D
observations we make no further order in the petitions out
of which these appeals arise."
(emphasis is mine)
E A perusal of the observations made by this Court reveal,
that the Government must act as a prudent businessman, and
that, the profit earned should be for public benefit and not for
private gains. A plea of reasonable restriction raised under
Article 19(6) of the Constitution of India to save the
F governmental action was rejected on the ground that the
scheme created middlemen who would earn large
disproportionate profits. This Court also held the action to be
discriminatory because it excluded others like the petitioners
from the zone of consideration. Finally, a direction came to be
G issued by this Court requiring the Government to act in the
interest of the general public and to invite tenders so that the
State may earn the entire benefit in a manner that no
disproportionate profits are diverted to any private agency.
(c) Reliance was also placed on Ramana Dayaram Sheffy
H
RE: SPECIAL REFERENCE N0.1 OF 2012 457
[JAGDISH SINGH KHEHAR, J.]
Vs. International Airport Authority of India & Ors., (1979) 3 A
sec 489, wherein this Court held as under:
"21. This rule also flows directly from the doctrine of
equality embodied in Article 14. It is now well-settled as a
result of the decisions of this Court in E.P. Royappa v.
8
State of Tamil Nadu, (1974) 4 SCC 3, and Maneka
Gandhi v. Union of India, (1978) 1 SCC 248, that Article
14 strikes at arbitrariness in State action and ensures
fairness and equality of treatment. It requires that State
action must not be arbitrary but must be based on some C
rational and relevant principle which is non-
discriminatory: it must not be guided by any extraneous
or irrelevant considerations, because that would be
denial of equality. The principle of reasonableness and
rationality which is legally as well as philosophically an
essential element of equality or non-arbitrariness is D
projected by Article 14 and it must characterise every State
action, whether it be under authority of law or in exercise
of executive power without making of law. The State
cannot, therefore, act arbitrarily in entering into
relationship, contractual or otherwise with a third party, but E
its action must conform to some standard or norm which
is rational and non-discrfminatory. This principle was
recognised and applied by a Bench of this Court presided
over by Ray, C.J., in Erusian Equipment and Chemicals
Ltd. v. State of West Bengal (supra) where the learned F
Chief Justice pointed out that-
"the State can carry on executive function by
making a law or without making a law. The
exercise of such powers and functions in trade by G
the State is subject to Part Ill of the Constitution.
Article 14 speaks of equality before the law and
equal protection of the laws. Equality of opportunity
should apply to matters of public contracts. The
State has the right to trade. The State has there
H
458 SUPREME COURT REPORTS [2012] 9 S.C.R.
A the duty to observe equality. An ordinary individual
can choose not to deal with any person. The
Government cannot choose to exclude persons
by discrimination. The order of blacklisting has the
effect of depriving a person of equality of opportunity
B in the matter of public contract. A person who is on
the approved list is unable to enter into
advantageous relations with the Government
because of the order of blacklisting .... A citizen has
a right to claim equal treatment to enter into a
c ccntract which may be proper, necessary and
essential to his lawful calling .... It is true that neither
the petitioner nor the respondent has any right to
enter into a contract but they are entitled to equal
treatment with others who offer tender or quotations
for the purchase of the goods".
D
It must, therefore follow as a necessary corollary from the
principle of equality enshrined in Article 14 that though
the State is entitled to refuse to enter into relationship with
any one, yet if it does so, it cannot arbitrarily choose any
E person it likes for entering into such relationship and
discriminate between persons similarly circumstanced,
but it must act in conformity with some standard or
principle which meets the test of reasonableness and
non-discrimination and any departure from such standard
F or principle would be invalid unless it can be supported
or justified on some rational and non discriminatory
ground.
22. It is interesting to find that this rule was recognised and
G applied by a Constitution Bench of this Court in a case of sale
of kendu leaves by the Government of Orissa in Rashbihari
Panda v. State of Orissa, (1969) 1 SCC 414 ..... This decision
wholly supports the view we are taking in regard to the
applicability of the rule against arbitrariness in State action."
H (emphasis is mine)
RE: SPECIAL REFERENCE N0.1 OF 2012 459
[JAGDISH SINGH KHEHAR, J.]
An analysis of the aforesaid determination by this Court A
would lead to the inference that the State has the right to trade.
In executing public contracts in its trading activity the State must
be guided by relevant principles, and not by extraneous or
irrelevant consideration. The same should be based on
reasonableness and rationality as well as non-arbitrariness. It B
came to be concluded, that the State while entering into a
contractual relationship, was bound to maintain the standards
referred to above. And any departure from the said standards
would be invalid unless the same is supported by good reasons.
(d) Our attention was also invited to the decision rendered
c
in Kasturi Lal Lakshmi Reddy Vs. State of Jammu & Kashmir
& Anr., (1980) 4 SCC 1, wherein the factual background as well
as, the legal position came to be expressed in paragraph 19
of the judgment which is being set out below:
D
"19. It is clear from the backdrop of the facts and
circumstances in which the impugned Order came to be
made and the terms and conditions set out in the impugned
Order that it was not a tapping contract simpliciter which
was intended to be given to the second respondents. The E
second respondents wanted to be assured of regular
supply of raw material in the shape of resin before they
could decide to set up a factory within the State and it was
for the purpose of ensuring supply of such raw material that
the impugned Order was made giving tapping contract to F
the second respondents. It was really by way of allocation
of raw material for running the factory that the impugned
Order was passed. The terms of the impugned Order show
beyond doubt that the second respondents were under an
obligation to set up a factory within the State and that 3500 G
metric tonnes of resin which was permitted to be retained
by the second respondents out of the resin extracted by
them was required to be utilised in the factory to be set
up by them and it was provided that no part of the resin
extracted should be allowed to be removed outside the
State. The whole object of the imi'.)ugned Order was to H
460 SUPREME COURT REPORTS [2012] 9 S.C.R.
A make available 3500 metric tonnes of resin to the second
respondents for the purpose of running the factory to be
set up by them. The advantage to the State was that a new
factory for manufacture of rosin, turpentine oil and other
derivatives would come up within its territories offering
B more job opportunities to the people of the State
increasing their prosperity and augmenting the State
revenues and in addition the State would be assured of a
definite supply of at least 1500 metric tonnes of resin for
itself without any financial involvement or risk and with this
c additional quantity of resin available to it, it would be able
to set up another factory creating more employment
opportunities and, in fact, as the counter-affidavit of
Ghulam Rasul, Under-Secretary to the Government filed on
behalf of the State shows the Government lost no time in
taking steps to set up a public sector resin distillation plant
D
in a far-flung area of the State, namely, Sundarbani, in
Rajouri District. Moreover, the State would be able to
. secure extraction of resin from these inaccessible areas
on the best possible terms instead of allowing them to
remain unexploited or given over at ridiculously low royalty.
E We cannot accept the contention of the petitioners that
.under the impugned Order a huge benefit was conferred
on the second respondents at the cost of the State. It is
clear from the terms of the impugned Order that the
. second respondents would have to extract at least 5000
F . metric tonnes of resin from the blazes allotted to them in
order to be entitled to retain 3500 metric tonnes. The
counter-affidavit of Ghulam Rasul on behalf of the first
respondent and Guran Devaya on behalf of the second
respondents show that the estimated cost of extraction and
G collection of resin from these inaccessible areas would be
at'the least Rs 175 per quintal, though according to Guran
Devaya it would be in the neighbourhood of Rs.200 per
. quintal, but even if we take the cost at the minimum figure
of .Rs.175 per quintal, the total cost of extraction and
H ·c011~ction would come to Rs.87 ,50,000 and on this
' ...
,,:
RE: SPECIAL REFERENCE N0.1 OF 2012 461
[JAGDISH SINGH KHEHAR, J.]
investment of Rs.87,50,000 required to be made by the A
second respondents the amount of interest at the prevailing
bank rate would work out to about Rs.13,00,000. Now, as
against this expenditure of Rs 87,50,000 plus
Rs.13,00,000 the second respondents would be entitled
to claim from the State, in respect of 1500 metric tonnes B
of resin to be delivered to it only at the rate sanctioned by
the Forest Department for the adjoining accessible forests
'JVhich were being worked on wage-contract basis. It is
stated in the counter-affidavits of Ghulam Rasul and Guran
Devaya and this statement is not seriously challenged on c
behalf of the petitioners, that the cost of extraction and
collection as sanctioned by the Forest Department for the
adjoining accessible forests given on wage-contract basis
in the year 1978-79 was Rs.114 per quintal and the
second respondents would, thus, be entitled to claim from D
the State no more than Rs.114 per quintal in respect of
1500 metric tonnes to be delivered to it and apart from
bearing the difference between the actual cost of extraction
and collection and the amount received from the State at
the rate of Rs.114 per quintal in respect of 1500 metric E
tonnes, the second respondents would have to pay the
price of the remaining 3500 metric tonnes to be retained
by them at the rate of Rs.350 per quintal. On this
reckoning, the cost of 3500 metric tonnes to be retained
by the second respondents would work out at Rs.474 per
quintal. The result would be that under the impugned Order F
the State would get 1500 metric tonnes of resin at the rate
of Rs.114 per quintal while the second respondents would
have to pay at the rate of Rs.474 per quintal for the balance
of 3500 metric tonnes retained by them. Obviously, a large
benefit would accrue to the State under the impugned G
Order. If the State were to get the blazes in these
inaccessible areas tapped through wage contract, the
minimum cost would be Rs.175 per quintal, without taking
into account the additional expenditure on account of
interest, but under the impugned Order the State would get H
462 SUPREME COURT REPORTS [2012] 9 S.C.R.
A 1500 metric tonnes of resin at a greatly reduced rate of
Rs.114 per quintal without any risk or hazard. The State
would also receive for 3500 metric tonnes of resin retained
by the second respondents price or royalty at the rate of
Rs.474 per quintal which would be much higher than the
B rate of Rs.260 per quintal at which the State was allotting
resin to medium scale industrial units and the rate of
Rs.320 per quintal at which it was allotting resin to small
scale units within the State. It is difficult to see how on
these facts the impugned Order could be said to be
c disadvantageous to the State or in any way favouring the
second respondents at the cost of the State. The argument
of the petitioners was that at the auctions held in
December 1978, January 1979 and April 1979, the price
of resin realised was as much as Rs.484, Rs.520 and
Rs.700 per quintal respectively and when the market price
D
was so high, it was improper and contrary to public interest
on the part of the State to sell resin to the second
respondents at the rate of Rs.320 per quintal under the
impugned Order. This argument, plausible though it may
seem, is fallacious because it does not take into account
E the policy of the State net to allow export of resin outside
its territories but to allot it only for use in factories set up
within the State. It is obvious that, in view of this policy, no
resin would be auctioned by the State and there would be
no question of sale of resin in the open market and in this
F situation, it would be totally irrelevant to import the concept
of market price with reference to which the adequacy of
the price charged by the State to the 2nd respor.dents
could be judged. If the State were simply selling resin, there
can be no doubt that the State must endeavour to obtain
G the highest price subject, of course, to any other overriding
considerations of public interest and in that event, its
action in giving resin to a private individual at a lesser price
would be arbitrary and contrary to public interest. But,
where the State has, as a matter of policy, stopped selling
H resin to outsiders and decided to allot it only to industries
RE: SPECIAL REFERENCE N0.1 OF 2012 463
[JAGDISH SINGH KHEHAR, J.]
set up within the State for the purpose of encouraging A
industrialisation, there can be no scope for complaint that
the State is giving resin at a lesser price than that which
could be obtained in the open market. The yardstick of
price in the open market would be wholly inept, because
in view of the State policy, there would be no question of B
any resin being sold in the open market. The object of the
State in such a case is not to earn revenue from sale of
resin, but to promote the setting up of industries within the
State. Moreover, the prices realised at the auctions held
in December 1978, January 1979 and April 1979 did not c
reflect the correct and genuine price of resin, because by
the time these auctions came to be held, it had become
known that the State had taken a policy decision to ban
export of resin from its territories with effect from 1979-80
and the prices realised at the auctions were therefore o
scarcity prices. In fact, the auction held in April 1979 was
the last auction in the State and since it was known that in
future no resin would be available for sale by auction in the
open market to outsiders, an unduly high price of Rs. 700
per quintal was offered by the factory owners having their E
factories outside the State, so that they would get as much
resin for the purpose of feeding their industrial units for
some time. The counter-affidavits show that, in fact, the
average sale price of resin realised during the year 1978-
79 was only Rs.433 per quintal and as compared to this
price, the 2nd respondents were required to pay price or F
royalty at a higher rate of Rs.474 per quintal for 3500
metric tonnes of resin to be retained by them under the
impugned Order. It is in the circumstances impossible to
see how it can at all be sa_id that any benefit was conferred
on the second respondents at the cost of the State. The G
first head of challenge against the impugned Order must,
therefore, be rejected."
(emphasis is mine)
H
464 SUPREME COURT REPORTS [2012] 9 S.C.R.
A An examination of the factual position of the controversy
dealt with in the judgment extracted above reveals, that the
State Government formulated a policy to set up a factory within
the State, which would result in creation of more job
opportunities for the people of the State. The setting up of the
B said factory would assure the State of atleast 1500 metric tones
of resin without any financial involvement. This in turn would
enable the State to set up another factory creating further
employment opportunities for the people of the State. It is
therefore, that this Court concluded that the impugned order
c passed by the State in favour of the second respondent could
not be said to be disadvantageous to the State and favouring
the second respondent. In a manner of understanding, this
Court found no infirmity in the impugned order passed by the
State Government because the State Government had given
effect to a policy which would "best subserve the common
0
good" of the inhabitants of the State (as in Article 39(b) of the
Constitution of India) while assigning a material resource,
though no reference was made to Article 39(b) of the
Constitution of India in the judgment. What is also of importance
E is, that this Court expressly noticed, that if the State Government
was simply selling resin, it was obliged to obtain the highest
possible price.
(e) Reference was then made to Dwarkadas Marfatia and
Sons Vs. Board of Trustees of the Port of Bombay, (1989) 3
F sec 293, wherein the case of the respondent was, that in his
evidence it had been mentioned by Katara that the plot had
been allotted to Dhanji Mavji since it was the policy of the
Bombay Port Trust to allot a reconstituted plot to a person
occupying a major portion of such plot. It was further asserted,
G that there was no challenge to this evidence in cross-
examination. It was also asserted, that there was no evidence
on the alleged policy of the Port Trust of giving plots on joint
tenancy to all the occupants. According to learned counsel for
the respondent, in the letters addressed by the Port Trust and
H in the letters by and on behalf of the appellant and/or their
RE: SPECIAL REFERENCE N0.1 OF 2012 465
[JAGDISH SINGH KHEHAR, J.]
alleged associate concerns they had specifically admitted, that A
there was a policy of the Port Trust to allot plots to the occupants
of the major portions thereof and in fact a grievance was made
by them, that in accordance with the said policy of the Bombay
Port Trust, a plot was not being allotted to the associates of
the appellant. In that view of the matter it was contended, that B
the issue whether the plot should have been given on joint
tenancy or not, could not have been gone into by the court in
exercise of its jurisdiction of judicial review. Reliance was
placed on the observations of Lord Justice Diplock in Council
of Civil Service Unions v. Minister for the Civil Service, (1984) c
3 All ER 935, 950, where the learned Lord Justice classified 3
grounds subject to control of judicial review, namely, illegality,
irrationality and procedural impropriety. In the aforesaid factual
background this Court concluded as under:
"21. We are unable to accept the submissions. Being a D
public body even in respect of its dealing with its tenant, it
must act in public interest, and an infraction of that duty is
amenable to examination either in civil suit or in writ
jurisdiction.
E
28. Learned Additional Solicitor General reiterated on
behalf of the respondent that no question of mala fide had
been alleged or proved in these proceedings. Factually, F
he is right. But it has to be borne in mind that
governmental policy would be invalid as lacking in public
interest, unreasonable or contrary to the professed
standards and this is different from the fact that it was not
done bona fide. It is true as learned Additional Solicitor
General contended that there is always a presumption that G
a governmental action is reasonable and in public interest.
It is for the party challenging its validity to show that the
action is unreasonable, arbitrary or contrary to the
professed norms or not informed by public interest, and
the burden is a heavy one. H
466 SUPREME COURT REPORTS [2012] 9 S.C.R.
A
37. As we look upon the facts of this case, there was an
implied obligation in respect of dealings with the tenants/
occupants of the Port Trust authority to act in public
interest/purpose. That requirement is fulfilled if it is
B
demonstrated that the Port Trust authorities have acted in
pursuance of a policy which is referable to public purpose.
Once that norm is established whether that policy is the
best policy or whether another policy was possible, is not
relevant for consideration. It is, therefore, not necessary for
c our present purposes to dwell on the question whether the
obligation of the Port Trust authorities to act in pursuance
of a public purpose was a public law purpose or a private
law purpose. Under the constitutional scheme of this
country the Port Trust authorities were required by relevant
D law to act in pursuance of public purpose. We are satisfied
that they have proceeded to so act.
(emphasis is mine)
E In the instant matter, even though the controversy pertained
to a tenancy issue, this Court held, that a public body was
bound to act in public interest.
(f) In chronological sequence, learned counsel then cited
Mahabir Auto Stores & Ors. Vs. Indian Oil Corporation & Ors.
F (1990) 3 SCC 752. Relevant observations made therein, with
reference to the present controversy, are being placed below:
"12. It is well settled that every action of the State or an
instrumentality of the State in exercise of its executive
G power, must be informed by reason. In appropriate cases,
actions uninformed by reason may be questioned as
arbitrary In proceedings under Article 226 or Article 32 of
the Constitution. Reliance in this connection may be placed
on the observations of this Court in Radha Krishna
Agarwal v. State of Bihar, (1977) 3 SCC 457. It appears
H
RE: SPECIAL REFERENCE N0.1 OF 2012 467
[JAGDISH SINGH KHEHAR, J.]
to us, at the outset, that in the facts and circumstances of A
the case, the respondent company IOC is an organ of the
State or an instrumentality of the State as contemplated
under Article 12 of the Constitution. The State acts in its
executive power under Article 298 of the Constitution in
entering or not entering in contracts with individual B
parties. Article 14 of the Constitution would be applicable
to those exercises of power. Therefore, the action of State
organ under Article 14 can be checked. See Radha
Krishna Agarwal v. State of Bihar at p. 462, but Article 14
of the Constitution cannot and has not been construed as c
a charter for judicial review of State action after the contract
has been entered into, to call upon the State to account
for its actions in its manifold activities by stating reasons
for such actions. In a situation of this nature certain
activities of the respondent company which constituted
0
State under Article 12 of the Constitution may be in certain
circumstances subject to Article 14 of the Constitution in
entering or not entering into contracts and must be
reasonable and taken only upon lawful and relevant
consideration; it depends upon facts and circumstances
E
of a particular transaction whether hearing is necessary
and reasons have to be stated. In case any right conferred
on the citizens which is sought to be interfered, such action
is subject to Article 14 of the Constitution, and must be
reasonable and can be taken only upon lawful and relevant
grounds of public interest. Where there is arbitrariness in F
State action of this type of entering or not entering into
contracts, Article 14 springs up and judicial review strikes
such an action down. Every action of the State executive
authority must be subject to rule of law and must be
informed by reason. So, whatever be the activity of the G
public authority, in such monopoly or semi-monopoly
dealings, it should meet the test of Article 14 of the
Constitution. If a governmental action even in the matters
of entering or not entering into contracts, fails to satisfy the
test of reasonableness, the same would be unreasonable. H
468 SUPREME COURT REPORTS [2012] 9 S.C.R.
A In this connection reference may be made to E.P.
Royappa v. State of Tamil Nadu, (1974) 4 SCC 3,
Maneka Gandhi v. Union of India, (1978) 1 SCC 248,
Ajay Hasia v. Khalid Mujib Sehravardi, (1981) 1 SCC
722, R.D. Sheffy v. International Airport Authority of India,
B (1979) 3 SCC 489, and also Dwarkadas Marfatia and
Sons v. Board of Trustees of the Port of Bombay, (1989)
3 sec 293. It appears to us that rule of reason and rule
against arbitrariness and discrimination, rules of fair play
and natural justice are part of the rule of law applicable i
c situation or action by State instrumentality in dealing with
citizens in a situation like the present one. Even though
the rights of the citizens are in the nature of contractual
rights, the manner, the method and motive of a decision
of entering or not entering into a contract, are subject to
judicial review on the touchstone of relevance and
D
reasonableness, fair play, natural justice, equality and
non-discrimination in the type of the transactions and
nature of the dealing as in the present case.
E
17. We are of the opinion that in all such cases whether
public law or private law rights are involved, depends upon
the facts and circumstances of the case. The dichotomy
between rights and remedies cannot be obliterated by any
F strait-jacket formula. It has to be examined in each
particular case. Mr Salve sought to urge that there are
certain cases under Article 14 of arbitrary exercise of such
"power" and not cases of exercise of a "right" arising either
under a contract or under a statute. We are of the opinion
that that would depend upon the factual matrix.
G
18. Having considered the facts and circumstances of the
case and the nature of the contentions and the dealing
between the parties and in view of the present state of law,
we are of the opinion that decision of the State/public
H
RE: SPECIAL REFERENCE N0.1 OF 2012 469
[JAGDISH SINGH KHEHAR, J.]
authority under Article 298 of the Constitution, is an A
administrative decision and can be impeached on the
ground that the decision is arbitrary or violative of Article
14 of the Constitution of India on any of the grounds
available in public law field. It appears to us that in respect
of corporation like IOC when without informing the parties B
concerned, as in the case of the appellant-firm herein on
alleged change of policy and on that basis action to seek
to bring to an end to course of transaction over 18 years
involving large amounts of money is not fair action,
especially in view of the monopolistic nature of the power c
of the respondent in this field. Therefore, it is necessary
to reiterate that even in the field of public law, the relevant
persons concerned or to be affected, should be taken into
confidence. Whether and in what circumstances that
confidence should be taken into consideration cannot be
0
laid down on any strait-jacket basis. It depends on the
nature of the right involved and nature of the power
sought to be exercised in a particular situation. It is true
that there is discrimination between power and right but
whether the State or the instrumentality of a State has the
right to function in public field or private field is a matter E
which, in our opinion, depends upon the facts and
circumstances of the situation, but such exercise of power
cannot be aealt with by the State or the instrumentality
of the State without informing and taking into confidence,
the party whose rights and powers are affected or sought F
to be affected, into confidence. In such situations most
often people feel aggrieved by exclusion of knowledge if
not taken into confidence.
19. Such transaction should continue as an administrative G
decision with the organ of the State. It may be contractual
or statutory but in a situation of transaction between the
parties for nearly two decades, such procedure should be
followed which will be reasonable, fair and just, that is, the
process which normally be accepted (sic is expected) to H
470 SUPREME COURT REPORTS (2012] 9 S.C.R.
A be followed by an organ of the State and that process
must be conscious and all those affected should be
taken into confidence.
20. Having regard to the nature of the transaction, we are
of the opinion that it would be appropriate to state that in
B
cases where the instrumentality of the state enters the
contractual field, it should be governed by the incidence
of the contract. It is true that it may not be necessary to
give reasons but, in our opinion, in the field of this nature
fairness must be there to the parties concerned, and
c having regard to the large number or the long period and
the nature of the dealings between the parties, the
appellant should have been taken into confidence. Equality
and fairness at least demands this much from an
instrumentality of the State dealing with a right of the State
D not to treat the contract as subsisting. We must, however,
evolve such process which will work.
23. It is not our decision which is important but a decision
E
on the above basis should be arrived at which should be
fair, just and reasonable - and consistent with good
government - which will be arrived at fairly and should be
taken after taking the persons concerned whose rights/
obligations are affected, into confidence. Fairness in
F such action should be perceptible, if not transparent. "
(emphasis is mine)
What came to be <:oncluded in the judgment extracted
G above can be described as an extension of the applicability of
Article 14 of the Constitution of India on the subject of
contractual agreements. Hithertobefore, an act of awarding
contracts was adjudged on the touchstone of fairness. For the
first time, even a decision of not entering into a contractual
H arrangement has been brought under the scope of judicial
RE: SPECIAL REFERENCE N0.1 OF 2012 471
[JAGDISH SINGH KHEHAR, J.]
review. The requirement of being fair, just and reasonable, i.e., A
principles applicable in good governance, have been held to
be equally applicable for not entering into a contractual
arrangement. Another facet of the aforesaid decision was, that
this Court expressed, that the contracting party had the right to
be informed (the right to know) why the contractual arrangement B
which had continued for long years (from 1965 to 1983) was
being terminated.
(g) Much emphasis was placed on the judgment rendered
by this Court in Kuman· Shrilekha Vidyarthi & Ors. Vs. State C
of UP. & Ors. (1991) 1 SCC 212. Observations which relied
upon during the course of hearing are being set out
hereinunder:
21. The Preamble of the Constitution of India resolves to
secure to all its citizens Justice, social, economic and D
political; and Equality of status and opportunity. Every State
action must be aimed at achieving this goal. Part IV of the
Constitution contains 'Directives Principles of State Policy'
which are fundamental in the governance of the country and
are aimed at securing social and economic freedoms by E
appropriate State action which is complementary to
individual fundamental rights guaranteed in Part Ill for
protection against excesses of State action, to realise the
vision in the Preamble. This being the philosophy of the
Constitution, can it be said that it contemplates exclusion F
of Article 14 - non-arbitrariness which is basic to rule· of
law - from State actions in contractual field when all
actions of the State are meant for public good and
expected to be fair and just? We have no doubt that the
Constitution does not envisage or permit unfairness or G
unreasonableness in State actions in any sphere of its
activity contrary to the professed ideals in the Preamble.
In our opinion, it would be alien to the constitutional
scheme to accept the argument of exclusion of Article 14
in contractual matters. The scope and permissible H
472 SUPREME COURT REPORTS [2012] 9 S.C.R.
A grounds of judicial review in such matters and the relief
which may be available are different matters but that does
not justify the view of its total exclusion This is more so
when the modern trend is also to examine the
unreasonableness of a term in such contracts where the
B bargaining power is unequal so that these are not
negotiated contracts but standard form contracts between
unequals.
22. There is an obvious difference in the contracts
between private parties and contracts to which the State
c is a party. Private parties are concerned only with their
personal interest whereas the State while exercising its
powers and discharging its functions, acts indubitably, as
is expected of it, for public good and in public interest.
The impact of every State action is also on public interest.
D This factor alone is sufficient to import at least the
minimal requirements of public law obligations and
impress with this character the contracts made by the
State or its instrumentality. It is a different matter that the
scope of judicial review in respect of disputes falling within
E the domain of contractual obligations may be more limited
and in doubtful cases the parties may be relegated to
adjudication of their rights by resort to remedies provided
for adjudication of purely contractual disputes. However,
to the extent, challenge is made on the ground of
F violation of Article 14 by alleging that the impugned act
is arbitrary, unfair or unreasonable, the fact that the
dispute also falls within the domain of contractual
obligations would not relieve the State of its obligation to
comply with the basic requirements of Article 14. To this
G extent, the obligation is of a public character invariably in
every case irrespective of there being any other right or
obligation in addition thereto. An additional contractual
obligation cannot divest the claimant of the guarantee
under Article 14 of non-arbitrariness at the hands of the
H State in any of its actions.
RE: SPECIAL REFERENCE N0.1 OF 2012 473
[JAGDISH SINGH KHEHAR, J.]
23. Thus, in a case like the present, if it is shown that the A
impugned State action is arbitrary and, therefore, violative
of Article 14 of the Constitution, there can be no
impediment in striking down the impugned act
irrespective of the question whether an additional right,
contractual or statutory, if any, is also available to the B
aggrieved persons.
24. The State cannot be attributed the split personality of
Dr Jekyll and Mr Hyde in the contractual field so as to
impress on it all the characteristics of the State at the
threshold while making a contract requiring it to fulfil the C
obligation of Article 14 of the Constitution and thereafter
permitting it to cast off its garb of State to adorn the new
robe of a private body during the subsistence of the
contract enabling it to act arbitrarily subject only to the
contractual obligations and remedies flowing from it. It is D
really the nature of its personality as State which is
significant and must characterize all its actions, in whatever
field, and not the nature of function, contractual or otherwise,
which is decisive of the nature of scrutiny permitted for
examining the validity of its act. The requirement of Article E
14 being the duty to act fairly, justly and reasonably, there
is nothing which militates against the concept of requiring
the State always to so act, even in contractual matters.
There is a basic difference between the acts of the State
which must invariably be in pubic interest and those of a F
private individual, engaged in similar activities, being
primarily for personal gain, which may or may not promote
public interest. Viewed in this manner, in which we find no
conceptual difficulty or anachronism, we find no reason why
the requirement of Article 14 should not extend even in the G
sphere of contractual matters for regulating the conduct of
the State activity.
25. In Wade: Administrative Law (6th edn.) after indicating
that 'the powers of public authorities are essentially
H
474 SUPREME COURT REPORTS [2012] 9 S.C.R.
A different from those of private persons', it has been
succinctly stated at pp. 400-01 as under:
" ... The whole conception of unfettered discretion is
inappropriate to a public authority, which possesses
powers solely in order that it may use them for the
B
public good.
There is nothing paradoxical in the imposition of suet") legal
limits. It would indeed be paradoxical if they were not
imposed. Nor is this principle an oddity of British or
c American law: it is equally prominent in French law. Nor
is it a special restriction which fetters only local authorities:
it applies no less to ministers of the Crown. Nor is it
confined to the sphere of administration: it operates
wherever discretion is given for some public purpose, for
D example where a judge has a discretion to order jury triaL
It is only where powers are given for the personal benefit
of the person empowered that the discretion is absolute.
Plainly this can have no application in public law.
For the same reasons there should in principle be no such
E
thing as unreviewable administrative discretion, which r
should be just as much a contradiction in terms as
unfettered discretion. The question which has to be asked
is what is the scope of judicial review, and in a few special
cases the scope for the review of discretionary decisions
F may be minimal. It remains axiomatic that all discretion is
capable of abuse, and that legal limits to every power are
to be found somewhere.
The view, we are taking, is, therefore, in consonance with
G the current thought in this field. We have no doubt that the
scope of judicial review may vary with reference to the type
of matter involved, but the fact that the action is reviewable,
irrespective of the sphere in which it is exercised, cannot
be doubted.
H
RE: SPECIAL REFERENCE N0.1 OF 2012 475
[JAGDISH SINGH KHEHAR, J.)
26. A useful treatment of the subject is to be found in an A
article "Judicial Review and Contractual Powers of Public
Authorities", (1990) 106 LQR 277-92. The conclusion
drawn in the article on the basis of recent English decisions
is that "public law principles designed to protect the
citizens should apply becaus.e of the public nature of the B
body, and they may have some role in protecting the public
interest". The trend now is towards judicial review of
contractual powers and the other activities of the
government. Reference is made also to the recent decision
of the Court of Appeal in Jones v. Swansea City Council, c
(1990) 1 WLR 54, where the court's clear inclination to the
view that contractual powers should generally be
reviewable is indicated, even though the Court of Appeal
faltered at the last step and refrained from saying so. It is
significant to note that emphasis now is on reviewability 0
of every State action because it stems not from the
nature of function, but from the public nature of the body
exercising that function; and all powers possessed by a
public authority, howsoever conferred, are possessed
'solely in order that it may use them for the public good'.
E
The only exception limiting the same is to be found in
specific cases where such exclusion may be desirable
for strong reasons of public policy. This, however, does
not justify exclusion of reviewability in the contractual field
involving the State since it is no longer a mere private
activity to be excluded from public view or scrutiny. F
27. Unlike a private party whose acts uninformed by
reason and influenced by personal predilections in
contractual matters may result in adverse consequences
to it alon~ without affecting the public interest, any such act G
of the State or a public body even in this field would
adversely affect the public interest. Every holder of a public
office by virtue of which he acts on behalf of the State or
public body is ultimately accountable to the people in
whom the sovereignty vests. As such, all powers so vested H
476 SUPREME COURT REPORTS [2012] 9 S.C.R.
A in him are meant to be exercised for public good and
promoting the public interest. This is equally true of all
actions even in the field of contract. Thus, every holder of
a public office is a trustee whose highest duty is to the
people of the country and, therefore, every act of the holder
B of a public office, irrespective of the label classifying that
act, is in discharge of public duty meant ultimately for
public good. With the diversification of State activity in a
Welfare State requiring the State to discharge its wide
ranging functions even through its several
e instrumentalities, which requires entering into contracts
also, it would be unreal and not pragmatic, apart from
being unjustified to exclude contractual matters from the
sphere of State actions required to be non-arbitrary and
justified on the touchstone of Article 14.
D 28. Even assuming that it is necessary to import the
concept of presence of some public element in a State
action to attract Article 14 and permit judicial review, we
have no hesitation in saying that the ultimate impact of all
actions of the State or a public body being undoubtedly
E on public interest, the requisite public element for this
purpose is present also in contractual matters. We,
therefore, find it difficult and unrealistic to exclude the State
actions in contractual matters, after the contract has been
made, from the purview of judicial review to test its validity
F on the anvil of Article 14.
29. It can no longer be doubted at this point of time that
Article 14 of the Constitution of India applies also to
matters of governmental policy and if the policy or any
action of the government, even in contractual matters, fails
G
to satisfy the test of reasonableness, it would be
unconstitutional. [See Ramana Dayaram Shetty v.
International Airport Authority of India, (1979) 3 sec 489,
and Kasturi Lal Lakshmi Reddy v. State of Jammu and
Kashmir, (1980) 4 sec 1]. In Col. A.S. Sangwan v. Union
H
I
RE: SPECIAL REFERENCE N0.1 OF 2012 477
[JAGDISH SINGH KHEHAR, J.]
of India, (1980) Supp. SCC 559, while the discretion to A
change the policy in exercise of the executive power, when
not trammelled by the statute or rule, was held to be wide,
it was emphasised as imperative and implicit in Article 14
of the Constitution that a change in policy must be made
fairly and should not give the impression that it was so B
done arbitrarily or by any ulterior criteria. The wide sweep
of Article 14 and the requirement of every State action
qualifying for its validity on this touchstone, irrespective of
the field of activity of the State, has long been settled. Later
decisions of this Court have reinforced the foundation of c
this tenet and it would be sufficient to refer only to two
recent decisions of this Court for this purpose.
33. No doubt, it is true, as indicated by us earlier, that there D
is a presumption of validity of the State action and the
burden is on the person who alleges violation of Article 14
to prove the assertion. However, where no plausible
reason or principle is indicated nor is it discernible and
the impugned State action, therefore, appears to be ex E
facie arbitrary, the initial burden to prove the arbitrariness
is discharged shifting onus on the State to justify its action
as fair and reasonable. If the State is unable to produce
material to justify its action as fair and reasonable,. the
burden on the person alleging arbitrariness must be held F
to be discharged. The scope of judicial review is limited
as indicated in Dwarkadas Marfatia case (supra) to
oversee the State action for the purpose of satisfying that
it is not vitiated by the vice of arbitrariness and no more.
The wisdom of the policy or the lack of it or the desirability G
of a better alternative is not within the permissible scope
of judicial review in such cases. It is not for the courts to
recast the policy or to substitute it with another which is
considered to be more appropriate, once the attack on the
ground of arbitrariness is successfully repelled by showing
H
I
478 SUPREME COURT REPORTS [2012] 9 S.C.R.
A that the act which was done, was fair and reasonable in
the facts and circumstances of the case. As indicated by
Diplock, L.J., in Council of Civil Service Unions v. Minister
for the Civil Service, (1984) 3 All ER 935, the power of
judicial review is limited to the grounds of illegality,
B irrationality and procedural impropriety. In the case of
arbitrariness, the defect of irrationality is obvious.
36. The meaning and true import of arbitrariness is more
c easily visualized than precisely stated or defined. The
question, whether an impugned act is arbitrary or not, is
ultimately to be answered on the facts and in the
circumstances of a given case. An obvious test to apply
is to see whether there is any discernible principle
D emerging from the impugned act and if so, does it satisfy
the test of reasonableness. Where a mode is prescribed
for doing an act and there is no impediment in following
that procedure, performance of the act otherwise and in a
manner which does not disclose any discernible principle
E which is reasonable, may itself attract the vice of
arbitrariness. Every State action must be informed by
reason and it follows that an act uninformed by reason, is
arbitrary. Rule of law contemplates governance by laws
and not by humour, whims or caprices of the men to whom
F the governance is entrusted for the time being. It is trite
that 'be you ever so high, the laws are above you'. This is
what men in power must remember, always."
(emphasis is mine)
G The legal proposition laid down in the instant judgment may
be summarized as follows. Firstly, State action in the
contractual field are meant for public good and in public interest
and are expected to be fair and just. Secondly, it would be alien
to the constitutional scheme to accept the argument of exclusion
H of Article 14 of the Constitution of India in contractual matters.
RE: SPECIAL REFERENCE N0.1 OF 2012 479
[JAGDISH SINGH KHEHAR, J.]
Thirdly, the fact that a dispute falls in the domain of contractual A
obligation, would make no difference, to a challenge raised
under Article 14 of the Constitution of India on the ground that
the impugned act is arbitrary, unfair and unreasonable. Fourthly,
every State action must be informed of reason and it follows
that an act uninformed by reason is arbitrary. Fifthly, where no B
plausible reason or principle is indicated (or is discernible), and
where the impugned action ex facie appears to be arbitrary,
the onus shifts on the State to justify its action as fair and
reasonable. Sixthly, every holder of public office is accountable
to the people in whom the sovereignty vests. All powers vested c
in a public office, even in the field of contract, are meant to be
exercised for public good and for promoting public interest. And
Seventhly, Article 14 of the Constitution of India applies also
to matters of governmental policy even in contractual matters,
and if the policy or any action of the government fails to satisfy 0
the test of reasonableness, the same would be unconstitutional.
(h) Thereafter our attention was invited to the decision
rendered in Lucknow Development Authority Vs. M.K. Gupta,
(1994) 1 SCC 243. Seriously, the instant judgment has no
direct bearing to the issue in hand. The judgment determines E
whether compensation can be awarded to an aggrieved
consumer under the Consumer Protection Act, 1986. It also
settles who should shoulder the responsibility of paying the
compensation awarded. But all the same it has some
interesting observations which may be noticed in the context F
of the matter under deliberation. Portions of the observations
emphasized upon are being noticed below:
"8 ...... Under our Constitution sovereignty vests in the
people. Every limb of the constitutional machinery is G .
obliged to be people oriented. No functionary in exercise
of statutory power can claim immunity, except to the extent
protected by the statute itself. Public authorities acting in
violation of constitutional or statutory provisions
oppressively are accountable for their behaviour before H
480 SUPREME COURT REPORTS [2012] 9 S.C.R.
A authorities created under the statute like the commission
or the courts entrusted with responsibility of maintaining the
rule of law. Each hierarchy in the Act is empowered to
entertain a complaint by the consumer for value of the
goods or services and compensation. The word
B 'compensation' is again of very wide connotation. It has not
been defined in the Act. According to dictionary it means,
'compensating or being compensated; thing given as
recompense;'. In legal sense it may constitute actual loss
or expected loss and may extend to physical, mental or
c even emotional suffering, insult or injury or loss. Therefore,
when the Commission has been vested with the jurisdiction
to award value of goods or services and compensation it
has to be construed widely enabling the Commission to
determine compensation for any loss or damage suffered
by a consumer which in law is otherwise included in wide
D
meaning of compensation. The provision in our opinion
enables a consumer to claim and empowers the
Commission to redress any injustice done to him. Any other
construction would defeat the very purpose of the Act. The
Commission or the Forum in the Act is thus entitled to
E award not only value of the goods or services but also to
compensate a consumer for injustice suffered by him.
F 10. Who should pay the amount determined by the
Commission for harassment and agony, the statutory
authority or should it be realised from those who were
responsible for it? Compensation as explained includes
both the just equivalent for loss of goods or services and
also for sufferance of injustice. For instance in Civil Appeal
G
No .... of 1993 arising out of SLP (Civil) No. 659 of 1991
the Commission directed the Bangalore Development
Authority to pay Rs 2446 to the consumer for the expenses
incurred by him in getting the lease-cum-sale agreement
registered as it was additional expenditure for alternative
H site allotted to him. No misfeasance was found. The
RE: SPECIAL REFERENCE N0.1 OF 2012 481
[JAGDISH SINGH KHEHAR, J.]
moment the authority came to know of the mistake A
committed by it, it took immediate action by alloting
alternative site to the respondent. It was compensation for
exact loss suffered by the respondent. It arose in due
discharge of duties. For such acts or omissions the loss
suffered has to be made good by the authority itself. But B
when the sufferance is due to mala fide or oppressive or
capricious acts etc. of a public servant, then the nature of
liability changes. The Commission under the Act could
determine such amount if in its opinion the consumer
suffered injury due to what is called misfeasance of the c
officers by the English Courts. Even in England where
award of exemplary or aggravated damages for insult etc.
to a person has now been held to be punitive, exception
has been carved out if the injury is due to, 'oppressive,
arbitrary or unconstitutional action by servants of the
0
Government' (Salmond and Heuston on the Law of Torts).
Misfeasance in public office is explained by Wade in his
book on Administrative Law thus:
"Even where there is no ministerial duty as above,
and even where no recognised tort such as E
trespass, nuisance, or negligence is committed,
public authorities -Or officers may be liable in
damages for malicious, deliberate or injurious
wrong-doing. There is thus a tort which has been
called misfeasance in public office, and which F
includes malicious abuse of power, deliberate
maladministration, and perhaps also other unlawful
acts causing injury." (p. 777)
The jurisdiction and power of the courts to indemnify a G
citizen for injury suffered due to abuse of power by public
authorities is founded as observed by Lord Hailsham in
Cassel/ & Co. Ltd. v. Broome, 1972 AC 1027, on the
principle that, 'an award of exemplary damages can serve
a useful purpose in vindicating the strength of law'. An H
482 SUPREME COURT REPORTS [2012] 9 S.C.R.
A ordinary citizen or a common man is hardly equipped to
match the might of the State or its instrumentalities. That
is provided by the rule of law. It acts as a check on arbitrary
and capricious exercise of power. In Rookes v. Barnard,
1964 AC 1129, it was observed by Lord Devlin, 'the
B servants of the government are also the servants of the
people and the use of their power must always be
subordinate to their duty of service'. A public functionary if
he acts maliciously or oppressively and the exercise of
power results in harassment and agony then it is not an
c exercise of power but its abuse. No law provides
protection against it. He who is responsible for it must
suffer it. Compensation or damage as explained earlier
may arise even when the officer discharges his duty
honestly and bona fide. But when it arises due to arbitrary
or capricious behaviour then it loses its individual character
D
and assumes social significance. Harassment of a
common man by public authorities is socially abhorring and
legally impermissible. It may harm him personally but the
injury to society is far more grievous. Crime and corruption
thrive and prosper in the society due to lack of public
E resistance. Nothing is more damaging than the feeling of
helplessness. An ordinary citizen instead of complaining
and fighting succumbs to the pressure of undesirable
functioning in offices instead of standing against it.
Therefore the award of compensation for harassment by
F public authorities not only compensates the individual,
satisfies him personally but helps in curing social evil. It
may result in improving the work culture and help in
changing the outlook. Wade in his book Administrative Law
has observed that it is to the credit of public authorities that
G there are simply few reported English decisions on this
form of malpractice, namely, misfeasance in public offices
which includes malicious use of power, deliberate
maladministration and perhaps also other unlawful acts
causing injury. One of the reasons for this appears to be
H.
RE: SPECIAL REFERENCE N0.1 OF 2012 483
[JAGDISH SINGH KHEHAR, J.]
development of law which, apart, from other factors A
succeeded in keeping a salutary check on the functioning
in the government or semi-government offices by holding
the officers personally responsible for their capricious or
even ultra vires action resulting in injury or loss to a citizen
by awarding damages against them. Various decisions B
rendered from time to time have been referred to by Wade
on Misfeasance by Public Authorities. We shall refer to
some of them to demonstrate how necessary it is for our
society. In Ashby v. White, (1703) 2 LO Raym 938, the
House of Lords invoked the principle of ubi jus ibi c
remedium in favour of an elector who was wrongfully
prevented from voting and decreed the claim of damages.
The ratio of this decision has been applied and extended
by English Courts in various situations.
11. Today the issue thus is not only of award of D
compensation but who should bear the brunt. The concept
of authority and power exercised by public functionaries
has many dimensions. It has undergone tremendous
change with passage of time and change in socio-
economic outlook. The authority empowered to function E
under a statute while exercising power discharges public
duty. It has to act to subserve general welfare and common
good. In discharging this duty honestly and bona fide, loss
may accrue to any person. And he may claim
compensation which may in circumstances be payable. F
But where the duty is performed capriciously or the
exercise of power results in harassment and agony then
the responsibility to pay the loss determined should be
whose? In a modern society no authority can arrogate to
itself the power to act in a manner which is arbitrary. It is G
unfortunate that matters which require immediate attention
linger on and the man in the street is made to run from one
end to other with no result. The culture of window clearance
appears to be totally dead. Even in ordinary matters a
common man who has neither the political backing nor the H
484 SUPREME COURT REPORTS (2012] 9 S.C.R.
A financial strength to match the inaction in public oriented
departments gets frustrated and it erodes the credibility in
the system. Public administration, no doubt involves a vast
amount of administrative discretion which shields the
action of administrative authority. But where it is found that
B exercise of discretion was mala fide and the complainant
is entitled to compensation for mental and physical
harassment then the officer can no more claim to be under
protective cover. When a citizen seeks to recover
compensation from a public authority in respect of injuries
c suffered by him for capricious exercise of power and the
National Commission finds it duly proved then it has a
statutory obligation to award the same. It was never more
necessary than today when even social obligations are
regulated by grant of statutory powers. The test of
permissive form of grant is over. It is now imperative and
D
implicit in the exercise of power that it should be for the
sake of society. When the court directs payment of
damages or compensation against the State the ultimate
sufferer is the common man. It is the tax payers' money
which is paid for inaction of those who are entrusted under
E
the Act to discharge their duties in accordance with law. It
is, therefore, necessary that the Commission when it is
satisfied that a complainant is entitled to compensation for
harassment or mental agony or oppression, which finding
of course should be recorded carefully on material and
F convincing circumstances and not lightly, then it should
further direct the department concerned to pay the amount
to the complainant from the public fund immediately but to
recover the same from those who are found responsible
for such unpardonable behaviour by dividing it
G proportionately where there are more than one
functionaries."
(emphasis is mine)
The judgment brings out the foundational principle of
H
RE: SPECIAL REFERENCE N0.1 OF 2012 485
[JAGDISH SINGH KHEHAR, J.]
executive governance. The said foundational principle is based A
on the realization that sovereignty vests in the people. The
judgment therefore records that every limb of the constitutional
machinery is obliged to be people oriented. The fundamental
principle brought out by the judgment is, that a public authority
exercising public power discharges a public duty, and therefore, B
has to subserve general welfare and common good. All power
should be exercised for the sake of society. The issue which
was the subject matter of consideration, and has been noticed
along with the citation, was decided by concluding that
compensation shall be payable by the State (or its c
instrumentality) where inappropriate deprivation on account of
improper exercise of discretion has resulted in a loss,
compensation is payable by the State (or its instrumentality).
But where the public functionary exercises his discretion
capriciously, or for considerations which are malafide, the public
0
functionary himself must shoulder the burden of compensation
held as payable. The reason for shifting the onus to the public
functionary deserves notice. This Court felt, that when a court
directs payment of damages or compensation against the
State, the ultimate sufferer is the common man, because it is
E
tax payers money out of which damages and costs are paid.
(i) Next cited for our consideration was the judgment in
Common Cause, A Registered Society Vs. Union of India &
Ors., (1996) 6 SCC 530. The instant case dealt with a
challenge to the allotment of retail outlets for petroleum products F
(petrol pumps). Allotment was made in favour of 15 persons
on the ground of poverty or unemployment. Rest of the relevant
facts emerge from the extracts from the judgment reproduced
below:
G
"24. The orders of the Minister reproduced above read:
"the applicant has no regular income to support herself and
her family", "the applicant is an educated lady and belongs
to Scheduled Tribe community", "the applicant is
unemployed and has no regular source of income", "the
H
486 SUPREME COURT REPORTS [2012] 9 S.C.R.
A applicant is an uneducated, unemployed Scheduled Tribe
youth without regular source of livelihood", "the applicant
is a housewife whose family is facing difficult financial
circumstances" etc. etc. There would be literally millions
of people in the country having these circumstances or
B worse. There is no justification whatsoever to pick up these
persons except that they happen to have won the favour
of the Minister on mala fide considerations. None of these
cases fall within the categories placed before this Court
in Centre for Public Interest Litigation v. Union of India,
c 1995 Supp. (3) sec 382, but even if we assume for
argument sake that these cases fall in some of those or
similar guidelines the exercise of discretion was wholly
arbitrary. Such a discretionary power which is capable of
being exercised arbitrarily is not permitted by Article 14
of the Constitution of India. While Article 14 permits a
D
reasonable classification having a rational nexus to the
objective sought to be achieved, it does not permit the
power to pick and choose arbitrarily out of several persons
falling in the same category. A transparent and objective
criteria/procedure has to be evolved so that the choice
E among the members belonging to the same class or
category is based on reason, fair play and non-
arbitrariness. It is essential to lay down as a matter of
policy as to how preferences would be assigned between
two persons falling in the same category. If there are two
F eminent sportsmen in distress and only one petrol pump
is available, there should be clear, transparent and
objective criteria/procedure to indicate who out of the two
is to be preferred. Lack of transparency in the system
promotes nepotism and arbitrariness. It is absolutely
G essential that the entire system should be transparent right
from the stage of calling for the applications up to the stage
of passing the orders of allotment. The names of the
allottees, the orders and the reasons for allotment should
be available for public knowledge and scrutiny. Mr Shanti
H Bhushan has suggested that the petrol pumps, agencies
RE: SPECIAL REFERENCE N0.1 OF 2012 487
[JAGDISH SINGH KHEHAR, J.]
etc. may be allotted by public auction - category wise A
amongst the eligible and objectively selected applicants.
We do not wish to impose any procedure on the
Government. It is a matter of policy for the Government to
lay down. We, however, direct that any procedure laid down
by the Government must be transparent, just, fair and non- B
arbitrary.
26. With the change in socio-economic outlook, the public
servants are being entrusted with more and more C
discretionary powers even in the field of distribution of
government wealth in various forms. We take it to be
perfectly clear, that if a public servant abuses his office
either by an act of omission or commission, and the
consequence of that is injury to an individual or loss of D
public property, an action may be maintained against such
public servant. No public servant can say "you may set
aside an order on the ground of mala fide but you cannot
hold me personally liable". No public servant can arrogate
to himself the power to act in a manner which is arbitrary." E
(emphasis is mine)
This judgment has a direct bearing on the controversy in
hand. It clearly delineates the manner in which discretion must
be exercised, specially when the object of discretion is State F
largesse. A perusal of the observations reproduced above
reveal, that the State largesse under reference (petrol pumps)
were to be allotted on the ground of poverty and unemployment.
Such an allotment was obviously based on a policy to "best
subserve the common good" enshrined in Article 39(b) of the G
Constitution of India. Th1s Court found no fault in the policy itself.
The fault was with the manner of giving effect to the policy. It
was held, that a transparent and objective criteria/procedure
has to be evolved, so "that the choice out of those who are
eligible can be made fairly and without any arbitrariness. The H
488 SUPREME COURT REPORTS [2012] 9 S.C.R.
A exercise of discretion which enables the competent authority
to arbitrarily pick and choose out of several persons falling in
the same category, according to the above decision would be
arbitrary, and as such violative of Article 14 of the Constitution
of India.
B
0) Out of the more recent judgments our attention was
invited to Meerut Development Authority Vs. Association of
Management Studies & Anr. etc., (2009) 6 SCC 171. The
controversy adjudicated upon in this case emerges from the
C decision of the appellant to allotment of 2 plots of land. For the
said purpose the appellant invited tenders from interested
persons. In response the respondent submitted its tender. After
the allotment of one of the plots to the respondent, the
respondent raised an objection that the appellant had fixed the
reserved price of the second plot at a rate much higher than
D its adjoining plots. The respondent assailed the action of the
appellant in issuing a fresh advertisement for the allotment of
the second plot. In the course of determination of the aforesaid
controversy this Court held:
E "26. A tender is an offer. It is something which invites and
is communicated to notify acceptance. Broadly stated it
must be unconditional; must be in the proper form, the
person by whom tender is made must be able to and
willing to perform his obligations. The terms of the invitation
F to tender cannot be open to judicial scrutiny because the
invitation to tender is in the realm of contract. However, a
limited judicial review may be available in cases where it
is established that the terms of the invitation to tender were
so tailor-made to suit the convenience of any particular
person with a view to eliminate all others from participating
G
in the bidding process.
27. The bidders participating in the tender process have
no other right except the right to equality and fair
treatment in the matter of evaluation of competitive bids
H offered by interested persons in response to notice
RE: SPECIAL REFERENCE N0.1 OF 2012 489
[JAGDISH SINGH KHEHAR, J.]
inviting tenders in a transparent manner and free from A
hidden agenda. One cannot challenge the terms and
conditions of the tender except on the abovestated ground,
the reason being the terms of the invitation to tender are
in the realm of the contract. No bidder is entitled as a
matter of right to insist the authority inviting tenders to enter B
into further negotiations unless the terms and conditions
of notice so provided for such negotiations.
28. It is so well settled in law and needs no restatement
at our hands that disposal of the public property by the
State or its instrumentalities partakes the character of a C
trust. The methods to be adopted for disposal of public
property must be fair and transparent providing an
opportunity to all the interested persons to participate in
the process.
D
29. The Authority has the right not to accept the highest
bid and even to prefer a tender other than the highest
bidder, if there exist good and sufficient reasons, such as,
the highest bid not representing the market price but there
cannot be any doubt that the Authority's action in accepting E
or refusing the bid must be free from arbitrariness or
favouritism.
39. The law has been succinctly stated by Wade in his F
treatise, Administrative Law:
"The powers of public authorities are therefore essentially
different from those of private persons. A man making his
will may, subject to any rights of his dependants, dispose G
of his property just as he may wish. He may act out of
malice or a spirit of revenge, but in law this does not affect
his exercise of his power. In the same way a private person
has an absolute power to allow whom he likes to use his
land, to release a debtor, or, where the law permits, to evict H
490 SUPREME COURT REPORTS [2012] 9 S.C.R.
A a tenant, regardless of his motives. This is unfettered
discretion. But a public authority may do none of these
things unless it acts reasonably and in good faith and upon
lawful and relevant grounds of public interest. So a city
council acted unlawfully when it refused unreasonably to let
B a local rugby football club use the city's sports ground,
though a private owner could of course have refused with
impunity. Nor may a local authority arbitrarily release
debtors, and if it evicts tenants, even though in accordance
with a contract, it must act reasonably and 'within the limits
c of fair dealing'. The whole conception of unfettered
discretion is inappropriate to a public authority, which
possesses powers solely in order that it may use them for
the public good.", Administrative Law, 9th Edn. H.W.R.
Wade and C.F. Forsyth.
D 40. There is no difficulty to hold that the authorities owe a
duty to act fairly but it is E!qually well settled in judicial
review, the court is not concerned with the merits or
correctness of the decision, but with the manner in which
the decision is taken or the order is made. The court
E cannot substitute its own opinion for the opinion of the
authority deciding the matter.
41. The distinction between appellate power and a judicial
review is well known but needs reiteration. By way of
F judicial review, the court cannot examine the details of the
terms of the contract which have been entered into by the
public bodies or the State. The courts have inherent
limitations on the scope of any such enquiry. If the contract
has been entered into without ignoring the procedure which
can be said to be basic in nature and after an objective
G
consideration of different options available taking into
account the interest of the State and the public, then the
court cannot act as an appellate court by substituting its
opinion in respect of selection made for entering into such
contract. But at the same time the courts can certainly
H
RE: SPECIAL REFERENCE N0.1 OF 2012 491
[JAGDISH SINGH KHEHAR, J.]
examine whether the "decision-making process" was A
reasonable, rational, not arbitrary and violative of Article
14. (See Sterling Computers Ltd. Vs. M&N Publications
Ltd., (1993) 1 sec 445).
B
50. We are, however, of the opinion that the effort, if any,
made by MDA to augment its financial resources and
revenue itself cannot be said to be an unreasonable
decision. It is well said that the struggle to get for the State
the full value of its resources is particularly pronounced in C
the sale of State-owned natural assets to the private sector.
Whenever the Government or the authorities get less than
the full value of the asset, the country is being cheated;
there is a simple transfer of wealth from the citizens as a
whole to whoever gets the assets "at a discount". Most of D
the times the wealth of the State goes to the individuals
within the country rather than to multinational corporations;
still, wealth slips away that ought to belong to the nation
as a whole.
E
(emphasis is mine)
In the instant judgment this Court laid down, that in a tender
process, a tenderer has the right to fair treatment and the right
to be treated equally. The evaluation of tenders, it has been
held, must be transparent and free from any hidden agenda. F
The view expressed in Wades Tretise on Administrative Law,
that public authorities cannot act in a manner which is open to
private persons, was accepted. Public authorities, it was held,
can neither act out of malice nor a spirit of revenge. A public
authority is ordained to act, reasonably and in good faith and G
upon lawful and relevant grounds of public interest. Most
importantly it was concluded, that the State "must" get the "full
value" of the resources, specially when State owned assets are
passed over to private individuals/entities. Not stopping there
the Court added further, that whoever pays less than the full H
492 SUPREME COURT REPORTS [2012] 9 S.C.R.
A value, get the assets belonging to the citizens "at a discount",
and as such the wealth that belongs to the nation slips away.
(k) Also cited for our consideration was the judgment in
Reliance Natural Resources Ltd. Vs. Reliance Industries Ltd.
B etc., (2010) 7 SCC 1. The Court's attention was invited to the
following:
"33. Mr R.F. Nariman, learned Senior Counsel appearing
for RIL concentrated his argument with reference to
Sections 391 to 394 of the Companies Act. According to
c him, Section 392 of the Act had no predecessors either
in English law or in the Companies Act of 1913. The
reason why the legislature appears to have felt the
necessity of enacting Section 392 is to bring Section 391
on a par with Section 394. Section 394 applies only to
D companies which are reconstructing and or amalgamating,
involving the transfer of assets and liabilities to another
company. It is thus, applicable to a species of the genus
of company referred to under Section 391. Section 394,
sub-section 1 specifically gives the Company Court the
E power not merely to sanction the compromise or
arrangement but also gives the Company Court the power,
by a subsequent order, to make provisions for "such
inCidental, consequential and supplemental matters as are
necessary to secure that the reconstruction or
F amalgamation shall be fully and effectively carried out"
[Section 394(1 )(vi)]. This power is absent in Section 391,
so that companies falling within Section 391, but not within
Section 394, would not be amenable to the Company
Court's jurisdiction to enforce a compromise or
arrangement made under Section 391 and to see that they
G
are fully carried out. Hence, the power under Section 392
has to be understood in the above context, and is of the
same quality as the power expressly given to the Company
Court post-sanction under Section 394.
H
RE: SPECIAL REFERENCE N0.1 OF 2012 493
[JAGDISH SINGH KHEHAR, J.]
122. From the above analysis, the following are the broad A
sustainable conclusions which can be derived from the
position of the Union:
(1) The natural resources are vested with the
Government as a matter of trust in the name of the
B
people of India. Thus, it is the solemn duty of the
State to protect the national interest.
(2) Even though exploration, extraction and exploitation
of natural resources are within the domain of
governmental function, the Government has c
decided to privatise some of its functions. For this
reason, the constitutional restrictions on the
Government would equally apply to the private
players in this process. Natural resources must
always be used in the interests of the country, and D
not private interests.
(3) The broader constitutional principles, the statutory
scheme as well as the proper interpretation of the
PSC mandates the Government to determine the
E
price of the gas before it is supplied by the
contractor.
(4) The policy of the Government, including the gas
utilisation policy and the decision of EGOM would
be applicable to the pricing in the present case. F
(5) The Government cannot be divested of its
supervisory powers to regulate the supply and
distribution of gas.
G
128. In a constitutional democracy like ours, the national
assets belong to the people. The Government holds such
natural resources in trust. Legally, therefore, the
Government owns such assets for the purposes of H
494 SUPREME COURT REPORTS [2012] 9 S.C.R.
A developing them in the interests of the· people. In the
present case, the Government owns the gas till it reaches
its ultimate consumer. A mechanism is provided under the
PSC between the Government and the contractor (RIL, in
the present case). The PSC shall override any other
B contractual obligation between the contractor and any other
party.
243. The structure of our Constitution is not such that it
c permits the reading of each of the Directive Principles of
State Policy, that have been framed for the achievement
of conditions of social, economic and political justice in
isolation. The structural lines of logic, of ethical imperatives
of the State and the lessons of history flow from one to the
D other. In the quest for national development and unity of the
nation, it was felt that the "ownership and control of the
material resources of the community" if distributed in a
manner that does not result in common good, it would lead
to derogation from the quest for national development and
E the unity of the nation. Consequently, Article 39(b) of the
Constitution should be construed in light of Article 38 of
the Constitution and be understood as placing an
affirmative obligation upon the State to ensure that
distribution of material resources of the community does
F not result in heightening of inequalities amongst people and
amongst regions. In line with the logic of the constitutional
matrix just enunciated, and in the sweep of the quest for
national development and unity, is another provision.
Inasmuch as inequalities between people and regions of
the nation are inimical to those goals, Article 39(c) posits
G
that the "operation of the economic system" when left
unattended and unregulated, leads to "concentration of
wealth and means of production to the common detriment"
and commands the State to ensure that the same does
not occur.
H
RE: SPECIAL REFERENCE N0.1 OF 2012 495
[JAGDISH SINGH KHEHAR, J.]
A
250 We hold that with respect to the natural resources
extracted and exploited from the geographic zones
specified in Article 297 the Union may not:
(1) transfer title of those resources after their extraction B
unless the Union receives just and proper
compensation for the same;
(2) allow a situation to develop wherein the various
users in different sectors could potentially be c
deprived of access to such resources;
(3) allow the extraction of such resources without a clear
policy statement of conservation, which takes into
account total domestic availability, the requisite
D
balancing of current needs with those of future
generations, and also India's security requirements;
(4) allow the extraction and distribution without periodic
evaluation of the current distribution and making an
assessment of how greater equity can be achieved, E
as between sectors and also between regions;
(5) allow a contractor or any other agency to extract and
distribute the resources without the explicit
permission of the Union of India, which permission
F
can be granted only pursuant to a rationally framed
utilisation policy; and
(6) no end user may be given any guarantee for
continued access and of use beyond a period to
be specified by the Government. G
Any contract including a PSC which does not take into
its ambit stated principles may itself become vulnerable
and fall foul of Article 14 of the Constitution.
H
(emphasis is mine)
496 SUPREME COURT REPORTS [2012] 9 S.C.R.
A Interestingly, in this case the position adopted by the Union
needs to be highlighted. This Court was informed, that natural
resources are vested in the Government, as a matter of trust,
in the name of the people of India. And that, it was the solemn
duty of the State to protect the national interest. The most
B significant assertion expressed on behalf of the Union was, that
natural resources must always be used in the interest of the
country and not in private interest. It is in the background of the
stance adopted by the Union, that this Court issued the
necessary directions extracted above.
c (I) Last of all reference was made to the decision of this
Court in Akhil Bhartiya Upbhokta Congress Vs. State of
Madhya Pradesh & Ors., (2011) 5 SCC 29:
65. What needs to be emphasised is that the State and/
D or its agencies/instrumentalities cannot give largesse to
any person according to the sweet will and whims of the
political entities and/or officers of the State. Every action/
decision of the State and/or its agencies/instrumentalities
to give largesse or confer benefit must be founded on a
E sound, transparent, discernible and well-defined policy,
which shall be made known to the public by publication in
the Official Gazette and other recognised modes of
publicity and such policy must be implemented/executed
by adopting a non-discriminatory and non-arbitrary method
F irrespective of the class or category of persons proposed
to be benefited by the policy. The distribution of largesse
Like allotment of land, grant of quota, permit licence, etc.
by the State and its agencies/instrumentalities should
always be done in a fair and equitable manner and the
element of favouritism or nepotism shall not influence the
G
exercise of discretion, if any, conferred upon the particular
functionary or officer of the State.
66. We may add that there cannot be any policy, much
less, a rational policy of allotting land on the basis of
H
RE: SPECIAL REFERENCE N0.1 OF 2012 497
[JAGDISH SINGH KHEHAR, J.]
applications made by individuals, bodies, organisations or A
institutions dehors an invitation or advertisement by the
State or its agency/instrumentality. By entertaining
applications made by individuals, organisations or
institutions for allotment of land or for grant of any other
type of largesse the State cannot exclude other eligible 8
persons from lodging competing claim. Any allotment of
land or grant of other form of largesse by the State or its
agencies/instrumentalities by treating the exercise as a
private venture is liable to be treated as arbitrary,
discriminatory and an act of favouritism and/or nepotism C
violating the soul of the equality clause embodied in Article
14 of the Constitution.
67. This, however, does not mean that the State can never
allot land to the institutions/organisations engaged in
educational, cultural, social or philanthropic activities or D
are rendering service to the society except by way of
auction. Nevertheless, it is necessary to observe that once
a piece of land is earmarked or identified for allotment to
institutions/organisations engaged in any such activity, the
actual exercise of allotment must be done in a manner E
consistent with the doctrine of equality. The competent
authority should, as a matter of course, issue an
advertisement incorporating therein the conditions of
eligibility so as to enable all similarly situated eligible
persons, institutions/organisations to participate in the F
process of allotment, whether by way of auction or
otherwise. In a given case the Government may allot land
at a fixed price but in that case also allotment must be
preceded by a wholesome exercise consistent with Article
14 of the Constitution." G
(emphasis is mine)
The observations of this Court in the judgment extracted
above neither need any summarization, nor any further
elaboration. H
498 SUPREME COURT REPORTS [2012) 9 S.C.R.
A (m) Surely, there cannot be any escape from a reference
to the judgment rendered by this Court in Centre for Public
Interest Litigation and others v. Union of India & Ors., (2012) 3
SCC 1, which according to the preamble of the Presidential
reference, seems to be the reason why the reference came to
8 be made. During the course of hearing extensive debate,
between rival parties, ensued on the effect of the observations
recorded by this Court in paragraphs 95 and 96 of the judgment.
The aforesaid paragraphs are being extracted hereinbelow:
"95. This Court has repeatedly held that wherever a
c contract is to be awarded or a licence is to be given, the
public authority must adopt a transparent and fair method
for making selections so that all eligible persons get a fair
opportunity of competition. To put it differently, the State
and its agencies/instrumentalities must always adopt a
D rational method for disposal of public property and no
attempt should be made to scuttle the claim of worthy
applicants. When it comes to alienation of scarce natural
resources like spectrum etc., it is the burden of the State
to ensure that a non-discriminatory method is adopted for
E distribution and alienation, which would necessarily result
in protection of national/public interest.
96. In our view, a duly publicized auction conducted fairly
and impartially is perhaps the best method for discharging
this burden and the methods like first-come-first-served
F
when used for alienation of natural resources/public
property are likely to be misused by unscrupulous people
who are only interested in garnering maxir:num financial
benefit and have no respect for the constitutional ethos and
values. In other words, while transferring or alienating the
G natural resources, the State is duty bound to adopt the
method of auction by giving wide publicity so that all
eligible persons can participate in the process."
In so far as the controversy in the aforesaid case is
H concerned, it would be relevant to mention that the petitioner
RE: SPECIAL REFERENCE N0.1 OF 2012 499
[JAGDISH SINGH KHEHAR, J.)
approached this Court by invoking the extraordinary writ A
jurisdiction of this Hon'ble Court under Article 32 of the
Constitution of India. The petition came to be filed as a cause
in public interest. The reason which promoted the petitioner to
approach this Court was that the Union had adopted the policy
of "first come first serve" for allocation of licences of spectrum. B
It was alleged that the aforesaid policy involved the element of
pure chance or accident. It was asserted on behalf of the
petitioners that invocation of the principles of "first come first
serve" for permission to use natural resources had inherently
dangerous implications. The implications expressed by the c
petitioners were duly taken into consideration and the plea
raised on behalf of the petitioners was accepted. Thereupon,
the following directions came to be issued in paragraph 102
of the judgment:
"102. In the result, the writ petitions are allowed in the D
following terms:
(i) The licences granted to the private Respondents on
or after 10.1.2008 pursuant to two press releases
issued on 10.1.2008 and subsequent allocation of E
spectrum to the licensees are declared illegal and
are quashed.
(ii) The above direction shall become operative after
four months.
F
(iii) Keeping in view the decision taken by the Central
Government in 2011, TRAI shall make fresh
recommendations for grant of licerwe and allocation
of spectrum in 2G band in 22 Service Areas by
auctio~, as was done for allocation of spectrum in G
3G band.
(iv) The Central Government shall consider the
recommendations of TRAI and take appropriate
H
500 SUPREME COURT REPORTS [2012] 9 S.C.R.
A decision within next one month and fresh licences
be granted by auction.
(v) Respondent Nos. 2, 3 and 9 who have been
benefited at the cost of Public Exchequer by a
wholly arbitrary and unconstitutional action taken by
B
the DoT for grant of UAS Licences and allocation
of spectrum in 2G band and who off-loaded their
stakes for many thousand crores in the name of
fresh infusion of equity or transfer of equity shall pay
cost of Rs. 5 crores each. Respondent Nos. 4, 6,
c 7 and 10 shall pay cost of Rs. 50 lakhs each
because they too had been benefited by the wholly
arbitrary and unconstitutional exercise undertaken
by the DoT for grant of UAS Licences and
allocation of spectrum in 2G band. We have not
D imposed cost on the Respondents who had
submitted their applications in 2004 and 2006 and
whose applications were kept pending till 2007.
(vi) Within four months, 50% of the cost shall be
E deposited with the Supreme Court Legal Services
Committee for being used for providing legal aid
to poor and indigent litigants. The remaining 50%
cost shall be deposited in the funds created for
Resettlement and Welfare Schemes of the Ministry
F of Defence.
(vii) However, it is made clear that the observations
made in this judgment shall not, in any manner,
affect the pending investigation by the CBI,
Directorate of Enforcement and Ors. agencies or
G cause prejudice to those who are facing
prosecution in the cases registered by the CBI or
who may face prosecution on the basis of
chargesheet(s) which may be filed by the CBI in
future and the Special Judge, CBI shall decide the
H matter uninfluenced by this judgment. We also
RE: SPECIAL REFERENCE N0.1 OF 2012 501
[JAGDISH SINGH KHEHAR, J.]
make it clear that this judgment shall not prejudice A
any person in the action which may be taken by
other investigating agencies under Income Tax Act,
1961, Prevention of Money Laundering Act, 2002
and other similar statutes."
B
It needs to be noticed that a review petition came to be
filed by the Union against the instant judgment. The same,
however, came to be withdrawn without any reservations.
During the course of hearing of the instant petition, the Learned
Attorney General for India informed this Court that the Union had C
decided to give effect to the judgment, in so far as the
allocation of spectrum is concerned. In the above view of the
matter, one only needs to notice the observations recorded by
this Court in paragraphs 95 and 96 extracted hereinabove. A
perusal of the aforesaid paragraphs reveals, that in line with
the judgments rendered by this Court interpreting Article 14 of D
the Constitution of India, this Court yet again held, that while
awarding a contact or a licence, the executive must adopt a
transparent and fair method. The executive must ensure, that
all eligible persons get a fair opportunity to compete. For
awarding contracts or licences, the executive should adopt a E
rational method, so as to ensure that claims of worthy
applicants are not scuttled. On the subject of natural resources
like spectrum, etc., this Court held that it was the bounden duty
of the State to ensure the adoption of a non-discriminatory
method which would result in protection of national/public F
interest. This Court also expressed the view that "perhaps" the
best method for doing so would be through a duly publicized
auction conducted fairly and impartially. Thus viewed, it was
affirmed, that the State was duty bound to adopt the method of
auction by giving wide publication while alienating natural G
resources, so as to ensure that all eligible persons can
participate in the process.
7. The parameters laid by this Court on the scope of
applicability of Article 14 of the Constitution of India, in matters H
502 SUPREME COURT REPORTS [2012] 9 S.C.R.
A where the State, its instrumentalities, and their functionaries, are
engaged in contractual obligations (as they emerge from the
judgments extracted in paragraph 6 above) are being briefly
paraphrased. For an action to be able to withstand the test of
Article 14 of the Constitution of India, it has already been
B expressed in the "main opinion" that it has to be fair,
reasonable, non-discriminatory, transparent, non-capricious,
unbiased, without favouritism or nepotism, in pursuit of
promotion of healthy competition and equitable treatment. The
judgments referred to, endorse all those requirements where
c the State, its instrumentalities, and their functionaries, are
engaged in contractual transactions. Therefore, all
"governmental policy" drawn with reference to contractual
matters, it has been held, must conform to the aforesaid
parameters. While Article 14 of the Constitution of India permits
a reasonable classification having a rational nexus to the object
0
sought to be achieved, it does not permit the power of pick and
choose arbitrarily out of several persons falling in the same
category. Therefore, a criteria or procedure has to be adopted
so that the choice among those falling in the same category is
based on reason, fair play and non-arbitrariness. Even if there
E are only two contenders falling in the zone of consideration, there
should be a clear, transparent and objective criteria or
procedure to indicate which out of the two is to be preferred. It
is this, which would ensure transparency.
F 8. Another aspect which emerges from the judgments
(extracted in paragraph 6 above) is that, the State, its
instrumentalities and their functionaries, while exercising their
executive power in matters of trade or business etc. including
making of contracts, should be mindful of public interest, public
G purpose and public good. This is so, because every holder of
public office by virtue of which he acts on behalf of the State,
or its instrumentalities, is ultimately accountable to the people
in whom sovereignty vests. As such, all powers vested in the
State are meant to be exercised for public good and in public
H interest. Therefore, the question of unfettered discretion in an
RE: SPECIAL REFERENCE N0.1 OF 2012 503
[JAGDISH SINGH KHEHAR, J.]
executive authority, just does not arise. The fetters on discretion A
are - a clear, transparent and objective criteria or procedure
which promotes public interest, public purpose and public good.
A public authority is or.dained, therefore to act, reasonably and
in good faith and upon lawful and relevant grounds of public
interest. B
9. Observations recorded by this Court on the subject of
revenue returns, during the course of the States engagements
in commercial ventures (emerging from the judgments
extracted in paragraph 6 above), are being summarized C
hereunder. It has been held, where the Sate is simply selling a
product, there can be no doubt that the State must endeavour
to obtain the highest price, subject of course to any other
overriding public consideration. The validity of a trading
agreement executed by the Government has to be judged by
the test, that the entire benefit arising therefrom enures to the D
State, and is not used as a cloak for conferring private benefits
on a limited class of persons. If a contract has been entered
into, taking in account the interest of the State and the public,
the same would not be interfered with by a Court, by assuming
the position of an appellate authority. The endeavour to get the E
State the "full value" of its resources, it has been held, is
particularly pronounced in the sale of State owned natural
resources, to the private sector. Whenever the State gets less
than the full value of the assets, it has been inferred, that the
country has been cheated, in a much as, it amounts to a simple F
transfer of wealth, from the citizens as a whole, to whoever gets
the assets at a discount. And in that sense, it has been
concluded, the wealth that belongs to the nation is lost. In
Reliance Natural Resources Ltd. 's case (supra), the Union of
India adopted the position, that natural resources are vested G
in the State as a matter of trust, for and on behalf of the citizens
of the country. It was also acknowledged, that it was the solemn
duty of the State, to protect those natural resources. More
importantly, it was accepted, that natural resources must
H
504 SUPREME COURT REPORTS [2012] 9 S.C.R.
A always be used in the common interest of the citizens of the
country, and not for private interest.
10. Based on the legal/constitutional parameters/
requirements culled out in the preceding three paragraphs, I
shall venture an opinion on whether there are circumstances in
8
which natural resources ought to be disposed of only by
ensuring maximum returns. For this, I shall place reliance on a
conclusion drawn in the "main opinion", namely, "Distribution
of natural resources is a policy decision, and the means
adopted for the same are thus, executive prerogatives.
C However, when such a policy decision is not backed by a social
or welfare purpose, and precious and scarce natural resources
are alienated for commercial pursuits of profit maximizing
private entrepreneurs, adoption of means other than those that
are competitive and maximize revenue, may be arbitrary and
D face the wrath of Article 14 of the Constitution." (refer to
paragraph 149 of the "main opinion"). I am in respectful
agreement with the aforesaid conclusion, and would accordingly
opine, that when natural resources are made available by the
State to private persons for commercial exploitation exclusively
E for their individual gains, the State's endeavour must be
towards maximization of revenue returns. This alone would
ensure, that the fundamental right enshrined in Article 14 of the
Constitution of India (assuring equality before the law and equal
protection of the laws), and the directive principle contained in
F Article 39(b) of the Constitution of India (that material resources
of the community are so distributed as best to subserve the
common guod), have been extended to the citizens of the
country.
G 11. A similar conclusion would also emerge in a slightly
different situation. This Court in a case dealing with a challenge
to the allotment of retail outlets for petroleum products
[Common Cause, A Registered Society Vs. Union of India &
Ors., ( 1996) 6 SCC 530] has held, that Article 14 of the
Constitution of India, does not countenance discretionary power
H
RE: SPECIAL REFERENCE N0.1 OF 2012 505
[JAGDISH SINGH KHEHAR, J.]
which is capable of being exercised arbitrarily. While accepting A
that Article 14 of the Constitution of India permits a reasonable
classification having a rational nexus to the object sought to be
achieved, it was held that Article 14 of the Constitution of India
does not permit the State to pick and choose arbitrarily out of
several persons falling in the same category. A transparent and B
objective criteria/procedure has to be evolved so that the choice
amongst those belonging to the same class or category is
based on reason, fair play, and non-arbitrariness. Envisage a
situation as the one expressed above, where by reasonable
classification based on some public purpose, the choice is c
limited to a set of private persons, amongst whom alone, the
State has decided to dispose of natural resources. Herein
again, in my opinion, if the participation of private persons is
for commercial exploitation exclusively for their individual gains,
then the State's endeavour to maximize revenue alone, would
0
satisfy the constitutional mandate contained in Articles 14 and
39(b) of the Constitution of India.
12. In the "main opinion", it has been concluded, that
auction is not a constitutional mandate, in the nature of an
absolute principle which has to be applied in all situations. And E
as such, auction cannot be read into Article 14 of the
Constitution of India, so as to be applied in all situations (refer
to paragraph 107 of the "main opinion"). Auction is certainly
not a constitutional mandate in the manner expressed, but it can
surely be applied in some situations to maximize revenue F
returns, to satisfy legal and constitutional requirements. It is,
therefore, that I have chosen to express the manner of disposal
of natural resources by using the words "maximization of
revenue" in place of the term "auction", in the foregoing two
paragraphs. But it may be pointed out; the Attorney General for G
India had acknowledged during the course of hearing, that
auction by way of competitive bidding was certainly an
indisputable means, by which maximization of revenue returns
is assured (in this behalf other observations recorded by me
in paragraph 3 above may also be kept in mind). In the H
506 SUPREME COURT REPORTS [2012] 9 S.C.R.
A aforesaid view of the matter, all that needs to be stated is, that
if the State arrives at the conclusion, in a given situation, that
maximum revenue would be earned by auction of the natural
resource in question, then that alone would be the process
which it would have to adopt, in the situations contemplated in
B the foregoing two paragraphs.
13. One is compelled to take judicial notice of the fact, that
allotment of natural resources is an issue of extensive debate
in the country, so much so, that the issue of allocation of such
resources had recently resulted in a washout of two sessions
C of Parliament. The current debate on allotment of material
resources has been prompted by a report submitted by the
Comptroller and Auditor General, asserting extensive loss in
revenue based on inappropriate allocations. The report it is
alleged, points out that private and public sector companies had
D made windfall gains because the process of competitive
bidding had not been adopted. The country witnessed a similar
political spat a little while earlier, based on the allocation of the
2G spectrum. On that occasion the controversy was brought to
this Court by way of a public interest litigation, the judgment
E whereof is reported as Centre for Public Interest Litigation Vs.
Union of India, (2012) 3 sec 1. Extensive revenue loss, in the
course of allocation of the 2G spectrum was duly noticed. On
each occasion when the issue of allocation of natural resources,
results in an alleged loss of revenue, it is portrayed as a loss
F to the nation. The issue then becomes a subject matter of
considerable debate at all levels of the Indian polity. Loss of
one, essentially entails a gain to the other. On each such
occasion loss to the nation, translates into the identification of
private players as the beneficiaries. If one were to accept the
G allegations appearing in the media, on account of defects in
the disposal mechanism, private parties have been
beneficiaries to the tune of lakhs of crores of Indian Rupees,
just for that reason. In the current debate, rival political parties
have made allegations against those responsible, which have
H been repudiated with counter allegations. This Court is not, and
RE: SPECIAL REFERENCE N0.1 OF 2012 507
[JAGDISH SINGH KHEHAR, J.)
should never be seen to be, a part of that debate. But it does A
seem, that the Presidential reference is aimed at invoking this
Court's advisory jurisdiction to iron out the creases, so that
legal and constitutional parameters are correctly understood.
This would avoid such controversies in future. It is therefore, that
an opinion is also being rendered by me, on the fourth question, B
namely, "What is the permissible scope for interference by
courts with policy making by the Government including methods
for disposal of natural resources?" On this the advice tendered
in the "main opinion" inter alia expresses, "We may, however,
hasten to add that the Court can test the legality and c
constitutionality of these methods. When questioned, the
Courts are entitled to analyse the legal validity of different
means of distribution and give a constitutional answer as to
which methods are ultra vires and intra vires the provisions of
the Constitution. Nevertheless, it cannot and will not compare D
which policy is fairer than the other, but, if a policy or law is
patently unfair to the extent that it falls fouls of the fairness
requirement of Article 14 of the Constitution, the Court would
not hesitate in striking it down.", (refer to paragraph 146 of the
"main opinion"). While fully endorsing the above conclusion, I E
wish to further elucidate the proposition.
Before adverting to anything else, it is essential to refer to
Article 39 (b) of the Constitution of India.
F
"39. Certain principles of policy to be followed by the
State - The State shall in particular, direct its policy
towards securing -
(b) that the ownership and control of the material resources
of the community are so distributed as best to subserve G
the common good;
(emphasis is mine)
The mandate contained in the Article extracted above
envisages, that all material resources ought to be distributed H
508 SUPREME COURT REPORTS [2012] 9 S.C.R.
A in a manner which would "best subserve the common good". It
is therefore apparent, that governmental policy for distribution
of such resources should be devised by keeping in mind the
"common good" of the community i.e., the citizens of this
country. It has been expressed in the "main opinion", that
B matters of policy fall within the realm of the legislature or the
executive, and cannot be interfered with, unless the policy is in
violation of statutory law, or is ultra vires the provision(s) of the
Constitution of India. It is not within the scope of judicial review
for a Court to suggest an alternative policy, which in the wisdom
c of the Court could be better suited in the circumstances of a
case. Thus far the position is clearly unambiguous.
The legality and constitutionality of policy is one matter,
and the manner of its implementation quite another. Even at the
implementation stage a forthright and legitimate policy, may
D take the shape of an illegitimate stratagem (which has been
illustrated at a later juncture hereinafter). Since the Presidential
reference is not based on any concrete fact situation, it would
be appropriate to hypothetically create one. This would enable
those responsible for decision making, to be able to appreciate
E the options available to them, without the fear of trespassing
beyond the limitations of legality and constitutionality. This
would also ensure that a truly meaningful opinion has been
rendered. The illustration, that has been chosen is imaginary,
and therefore, should not be taken as a reference to any similar
F real life situation(s}/circumstance(s). The focus in the instant
consideration is limited to allocation of natural resources for
private commercial exploitation, i.e., where a private player will
be the beneficiary of such allocation, and will exploit the natural
resource to make personal profits therefrom.
G
The illustration chosen will be used to express an opinion
on matters which are governed by statutory provisions, as also,
those which are based on governmental policy. This is so
because in so far as the present controversy is concerned, the
parameters for distribution of natural resources must be
H
RE: SPECIAL REFERENCE N0.1 OF 2012 509.
[JAGDISH SINGH KHEHAR, J.]
examined under these two heads separately. A
Coal is a natural resource. It shall constitute the illustrative
natural resource for the present consideration. Let us assume
a governmental decision to allocate coal lots for private
commercial exploitation. First, the legislative policy angle.
8
Reference may be made to the Mines and Minerals
(Development and Regulation) Act, 1957 (hereinafter referred
to as, the MMDR Act). The enactment deals exclusively with
natural resources. Section 11A of the MMDR Act has been
chosen as the illustrative provision, to demonstrate how a
forthright legitimate legislative policy, may take the shape of an C
illegitimate stratagem. The choice of Section 11A aforesaid is
on account of the fact that it was added to the MMDR Act only
on 13.2.2012, and as such, there may not have been, as of
now, any actual allocation of coal lots based thereon. Section
11A of the MMDR Act, is being placed hereunder: D
"11A. Procedure in respect of coal or lignite - The Central
Government may, for the purpose of granting
reconnaissance permit, prospecting licence or mining
lease in respect of an area containing coal or lignite, E
select, through auction by competitive bidding on such
terms and conditions as may be prescribed, a company
engaged in, -
(i) production of iron and steel;
F
(ii) generation of power;
(iii) washing of coal obtained from a mine; or
(iv) such other end use as the Central Government may,
by notification in the Official Gazette, specify, and G
the State Government shall grant such
reconnaissance permit, prospecting licence or
mining lease in respect of coal or lignite to such
company as selected through auction by
competitive bidding under this section: H
510 SUPREME COURT REPORTS [2012] 9 S.C.R.
A Provided that the auction by competitive bidding shall
not be applicable to an area containing coal or lignite,-
(a) where such area is considered for allocation to a
Government company or corporation for mining or
such other specified end use;
B
(b) where such area is considered for allocation to a
company or corporation that has been awarded a
power project on the basis of competitive bids for
tariff (including Ultra Mega Power Projects)."
c
Explanation - For the purposes of this section "company"
means a company as defined in section 3 of the
Companies Act, 1956 and includes a foreign company
within the meaning of section 591 of that Act.
D
(emphasis is mine)
For the grant of a mining lease in respect of an area
containing coal, the provision leaves no room for any doubt, that
selection would be made through auction by competitive
E bidding. No process other than auction, can therefore be
adopted for the grant of a coal mining lease.
Section 11A of the MMDR Act also defines the zone of
eligibility, for participation in such competitive bidding. To be
F eligible, the contender must be engaged in the production of
iron and steel, or generation of power, or washing of coal
obtained from a mine, or an activity notified by the Central
Government. Only those satisfying the legislatively prescribed
zone of eligibility, are permitted to compete for a coal mining
lease. For the sake of fairness, and to avoid arbitrariness, the
G provision contemplates, that the highest bidder amongst those
who participate in the process of competitive bidding, would
succeed in obtaining the concerned coal mining lease. The
legislative policy limiting the zone of consideration could be
subject matter of judicial review. It could be assailed, in case
H of violation of a legal or constitutional provision. As expressed
RE: SPECIAL REFERENCE N0.1 OF 2012 511
[JAGDISH SINGH KHEHAR, J.]
of violation of a legal or constitutional provision. As expressed A
in the "main opinion" the facts of each individual case, will be
the deciding factor for such determination. In the absence of
any such challenge, the legislative policy would be binding and
enforceable. In such an eventuality, those who do not fall within
the zone of consideration, would be precluded from the process B
of competitive bidding for a mining lease over an area having
coal deposits. In the process of auction through competitive
bidding, if the objective is to best subserve the common good
(as in Article 39(b) of the Constitution of India) the legislative
policy would be fully legitimate. If however, the expressed c
legislative policy has no nexus to any legitimate objective, or it
transgresses the mandate of distribution of material resources
to "best subserve the common good", it may well be unfair,
unreasonable or discriminatory.
For an effective analysis, Section 11A of the MMDR Act D
needs a further closer examination. Section 11A aforesaid, as
an exception to the legislative policy referred to in the foregoing
paragraph, also provides for the grant of a mining lease for coal
to a private player, without following the auction route. The
provision contemplates the grant of a mining lease for coal, E
without any reciprocal monetary or other consideration from the
lessee. The proviso in section 11 A of the MMDR Act, excludes
the auction route where the beneficiary is engaged in power
generation. Such exclusion, is contemplated only when the
power generating concern, was awarded the power project, on F
the basis of "competitive bids for tariff'. It is important to
highlight, that there is no express assurance in section 11A
aforesaid, that every entrepreneur who sets up a power project,
having succeeded on the basis of competitive bidding, would
be allotted a coal "mining lease. But if such an allotment is G
actually made, it is apparent, that such entrepreneur would get
the coal lot, without having to participate in an auction, free of
cost. The legislative policy incorporated in Section 11A of the
MMDR Act, if intended to best subserve the common good,
may well be valid, even in a situation where the material resource H
512 SUPREME COURT REPORTS [2012] 9 S.C.R.
A is being granted free of cost. What appears to be free of cost
in the proviso in Section 11A of the MMDR Act, is in actuality
consideration enmeshed in providing electricity at a low tariff.
The aforesaid proviso may be accepted as fair, and may not
violate the mandate contained in Article 14 of the Constitution
B of India, or even the directive principles contained in Article
39(b) of the Constitution of India.
Hypothetically, assume a competitive bidding process for
tariff, amongst private players interested in a power generation
C project. The private party which agrees to supply electricity at
the lowest tariff would succeed in such an auction. The
important question is, if the private party who succeeds in the
award of the project, is granted a mining lease in respect of
an area containing coal, free of cost, would such a grant satisfy
the test of being fair, reasonable, equitable and impartial. The
D answer to the instant query would depend on the facts of each
individual case. Therefore, the answer could be in the
affirmative, as well as, in the negative. Both aspects of the
matter are being explained in the succeeding paragraph.
E Going back to the hypothetical illustration based on
Section 11A of the MMDR Act. One would add some further
facts so as to be able to effectively project the legal point of
view. If the bidding process to determine the lowest tariff has
been held, and the said bidding process has taken place
F without the knowledge, that a coal mining lease would be
allotted to the successful bidder, yet the successful bidder is
awarded a coal mining lease. Would such a grant be valid? In
the aforesaid fact situation, the answer to the question posed,
may well be in the negative. This is so because, the competitive
G bidding for tariff was not based on the knowledge of gains, that
would come to the vying contenders, on account of grant of a
coal mining lease. Such a grant of a coal mining lease would
therefore have no nexus to the "competitive bid for tariff'. Grant
of a mining lease for coal in this situation would therefore be a
H windfall, without any nexus to the object sought to be achieved.
RE: SPECIAL REFERENCE N0.1 OF 2012 513
[JAGDISH SINGH KHEHAR, J.]
In the bidding process, the parties concerned had no occasion A
to bring down the electricity tariff, on the basis of gains likely
to accrue to them, from the coal mining lease. In this case, a
material resource would be deemed to have been granted
without a reciprocal consideration i.e., free of cost. Such an
allotment may not be fair and may certainly be described as B
arbitrary, and violative of the Article 14 of the Constitution of
India. Such an allotment having no nexus to the objective of
subserving the common good, would fall foul even of the
directive principle contained in Article 39(b) of the Constitution
of India. Therefore, a forthright and legitimate policy, on account c
of defective implementation, may become unacceptable in law.
In a slightly changed factual scenario, the conclusion may
well be different. If before the holding the process of auction,
for the award of a power project (based on competitive bids
for tariff), it is made known to the contenders, that the successful D
bidder would be entitled to a mining lease over an area
containing coal, those competing for the power project would
necessarily incorporate the profit they were likely to make from
such mining lease. While projecting the tariff at which they would
supply electricity, they would be in a position to offset such E
profits from their costs. This would result in an in an opportunity
to the contenders to lower the tariff to a level lower than would
have been possible without the said lease. In such a situation
the gains from the coal mining lease, would be enmeshed in
the competitive bidding for tariff. Therefore, it would not be just F
to assume in the instant sequence of facts, that the coal lot has
been granted free of cost. One must read into the said grant,
a reciprocal consideration to provide electricity at a lower tariff.
In the instant factual scenario, the allotment of the mining lease
would be deemed to be aimed at "subserving the common G
good" in terms of Article 39(b) of the Constitution of India.
Therefore even the allotment of such a mining lease, which
appears to result in the allocation of a natural resource free of
cost, may well satisfy the test of fairness and reasonableness
contemplated in Article 14 of the Constitution of India. Moreso, H
514 SUPREME COURT REPORTS [2012] 9 S.C.R.
A because a fair playing field having been made available to all
those competing for the power project, by making them aware
of the grant of a coal mining lease, well before the bidding
process. The question of favouritism therefore would not arise.
Would such a grant of a natural resource, free of cost, be valid?
8 The answer to the query, in the instant fact situation, may well
be in the affirmative.
The policy of allocation of natural resources for public good
can be defined by the legislature, as has been discussed in
the foregoing paragraphs. Likewise, policy for allocation of
C natural resources may also be determined by the executive.
The parameters for determining the legality and constitutionality
of the two are exactly the same. In the aforesaid view of the
matter, there can be no doubt about the conclusion recorded
in the "main opinion" that auction which is just one of the several
D price recovery mechanisms, cannot be held to be the only
constitutionally recognized method for alienation of natural
resources. That should not be understood to mean, that it can
never be a valid method for disposal of natural resources (refer
to paragraphs 10 to 12 of my instant opinion).
E
I would therefore conclude by stating that no part of the
natural resource can be dissipated as a matter of largess,
charity, donation or endowment, for private exploitation. Each
bit of natural resource expended must bring back a reciprocal
F consideration. The consideration may be in the nature of
earning revenue or may be to "best subserve the common
good". It may well be the amalgam of the two. There cannot be
a dissipation of material resources free of cost or at a
consideration lower than their actual worth. One set of citizens
G cannot prosper at the cost of another set of citizens, fo·r that
would not be fair or reasonable.
R.P. Reference answered partly.
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