Under the Indian Constitution, the State is under the prime responsibility to
ensure justice, liberty, equality, and fraternity in the country. The state is
under the obligation to protect the individuals' fundamental rights and
implement the Directive Principles of State Policy. In order to restrain the
State from escaping its responsibilities, the Indian Constitution has conferred
inherent powers, of reviewing the State's action, on the courts. In this
context, the Indian judiciary has been considered as the guardian and protector
of the Indian Constitution
Considering its constitutional duty, the Indian judiciary has played an
active role, whenever required, in protecting the individuals' fundamental
rights against the State's unjust, unreasonable and unfair actions/inactions.
Black's Law Dictionary defines judicial activism as: a philosophy of judicial
decision-making whereby judges allow their personal views about public policy,
among other factors, to guide their decisions, usually with the suggestion that
adherents of this philosophy tend to find constitutional violations and are
willing to ignore precedent.
Meaning Of Judicial Activism
At the outset, it has to be stated that there is no precise definition of
judicial activism accepted by one and all. However, there is a widely accepted
notion that it is related to problems and processes of the political development
of a country. In other words, judicial activism deals with the political role
played by the judiciary, like the other two branches of the State viz, the
legislature and the executive.
An eminent Indian jurist defines judicial activism in the following words:
(Judicial) Activism[1] is that way of exercising judicial power which seeks
fundamental re-codification of power relations among the dominant institutions
of State, manned by members of the ruling classes. The same authority goes on to
add that judicial activism is the use of judicial power to articulate and
enforce counter-ideologies which when effective initiates significant
re-codifications of power relations within the institutions of governance.
An analysis of the above attempt by Upendra Baxi to define judicial activism
shows that activism of the judiciary pertains to the political role played by
it, like the other two political branches. The justification for the judicial
activism comes from the near collapse of responsible government and the
pressures on the judiciary to step in aid which forced the judiciary to respond
and to make political or policy-making judgments.
Various Theories Of Concept Of Judicial Activism
As far as the origin and evolution of judicial activism go, there are two
theories[2] behind the whole concept. They are: (i) Theory of vacuum filling and
(ii) Theory of Social Want.
Theory Of Vacuum Filling
The theory of vacuum filling states that a power vacuum is created in the
governance system due to the inaction and laziness of any one organ. When such a
vacuum is formed, it is against the good being of the nation and may cause
disaster to the democratic set up of the country. Hence, nature does not permit
this vacuum to continue and other organs of governance expand their horizons and
take up this vacuum.
In this case, the vacuum is created by the inactivity, incompetence, disregard
of law, negligence, corruption, utter indiscipline and lack of character among
the two organs of governance viz. the legislature and the executive. Hence the
remaining organ of the governance system i.e. the judiciary is left with no
other alternative but to expand its horizons and fill up; the vacuums created by
the executive and the legislature. Thus according to this theory, the so-called
hyper-activism of the judiciary is a result of filling up of the vacuum or the
void created by the non-activism of the legislature and the executive.
Theory Of Social Want
The Theory of Social Want states that judicial activism emerged due to the
failure of the existing legislations to cope up with existing situations and
problems in the country. When the existing legislations failed to provide any
pathway, it became incumbent upon the judiciary to take on itself the problems
of the oppressed and to find a way to solve them. The only way left to them
within the framework of governance to achieve this end was to provide
non-conventional interpretations to the existing legislations, so as to apply
them for greater good.
Hence, the judicial activism has emerged. The supporters of this theory opine
that ―judicial activism plays a vital role in bringing in the societal
transformation. It is the judicial wing of the state that injects life into law
and supplies the missing links in the legislation. Having been armed with the
power of review, the judiciary comes to acquire the status of a catalyst on
change.
Judicial activism and shift from locus standi to public interest litigation
Access to justice is a fundamental aspect of rule of law. If the justice is not
accessible to all, establishment of the rule of law is not possible. The
individuals fail to reach justice system due to various reasons including lack
of basic necessities, illiteracy, poverty, discrimination, privacy, poor
infrastructure of the justice system, etc. The Supreme Court of India has
recognised in many landmark judgments that access to justice is a fundamental
right.
Indian Judiciary has played an active role in ensuring access to justice for the
indigent persons, members belonging to socially and educationally backward
classes, victims of human trafficking or victims of beggar, transgender, etc.
Since Independence, the Courts in India have been adopting innovative ways for
redressing the grievances of the disadvantaged persons. In many cases, the
Supreme Court exercised its epistolary jurisdiction and took suo motto actions
on mere postal letters disclosing the human rights violations in society. The
court entertains the petitions which are being filed by the public spirited
persons in the public interest. By doing so, the superior courts have liberated
themselves from the shackles of the principle of locus standi and given the
birth to the Public interest litigation in India. The shift from locus standi to
public interest litigation made the judicial process more participatory and
democratic.
S.P. Sathe[3] says: The traditional paradigm of judicial process meant for
private law adjudication had to be replaced by a new paradigm that was
polycentric and even legislative. While under the traditional paradigm, a
judicial decision was binding on the parties (res judicata) and was binding in
personam, the judicial decision under public interest litigation bound not only
the parties to the litigation but all those similarly situated. The Supreme
Court in People's Union for Democratic Rights v. Union of India[4] held that
public interest litigation is different from the traditional adversarial justice
system. The court said that public interest litigation is intended to promote
public interest. Public interest litigation has been invented to bring justice
to poor and socially or economically disadvantaged sections of the society.
The violations of constitutional or legal rights of such large number of persons
should not go unnoticed. The Supreme Court in
Bandhua Mukti Morcha v. Union
of India[5] has justified the public interest litigation on the basis of
vast areas in our population of illiteracy and poverty, of social and economic
backwardness, and of an insufficient awareness and appreciation of individual
and collective rights. One of the landmark cases relating to the public interest
litigation was
Hussainara Khatoon (I) v. State of Bihar[6].
A series of articles exposing the plight of under trial prisoners in the State
of Bihar was published in a prominent newspaper. Many of the under trial
prisoners had already served the maximum sentence without even being charged for
the offence. A writ petition drawing the Court's attention to the issue was
filed by an advocate. While accepting it as public interest involved, the
Supreme Court held that right to speedy trial is a fundamental right under
Article 21 of the Indian Constitution[7]. The court directed the State to
provide free legal facilities to the under trials so that they could get bail or
final release.
In
Municipal Council, Ratlam v. Vardichand[8], the Court admitted the
writ petition filed by a group of citizens who sought directions against the
local Municipal Council for removal of open drains. The Court said that if the
centre of gravity of justice is to shift as indeed the Preamble to the
Constitution mandates, from the traditional individualism of locus standi to the
community orientation of public interest litigation, the court must consider the
issues as there is need to focus on the ordinary men. Similarly, a petition
seeking court's directions for protecting the lives of the people who made use
of the water flowing in the river Ganga, was accepted as public interest
litigation by the Supreme Court of India in the case of M.C Mehta v. Union of
India[9].
In this case, the court directed the local bodies to take effective measures to
prevent pollution of the water in the river Ganga. Explaining the significance
of public interest litigation, the court observed that: It must now be regarded
as well-settled law where a person who has suffered a legal wrong or a legal
injury or whose legal right or legally protected interest is violated, is unable
to approach the court on account of some disability or it is not practicable for
him to move the court for some other sufficient reasons, such as his socially or
economically disadvantaged position, some other person can invoke the assistance
of the court for the purpose of providing judicial redress to the person wronged
or injured, so that the legal wrong or injury caused to such person does not go
un-redressed and justice is done to him.
However, the public interest litigation should not be abused by anyone. It
cannot be allowed to be used for creating nuisance or for obstructing
administration of justice. Recent legislations enacted through judicial activism
Judicial activism has done a great service to society which can be inferred
through following decisions:
Judicial activism and Public private partnership
Public private partnership
What is PPP and its importance at the present stage of development?
The Department of Economic Affairs of the Ministry of Finance of the Government
of India has defined PPP[10] in the following terms: PPP is an arrangement
between a government/statutory entity/government-owned entity on one side and a
private sector entity on the other, for the provision of public assets and/ or
public services, through investments being made and/ or management being
undertaken by the private sector entity, for a specified period of time, where
there is well-defined allocation of risk between the private sector and the
public entity and the private entity receives performance-linked payments that
conform to specified and predetermined performance standards, measurable by the
public entity or its representative.
From the above definition it follows that PPP is a device or a vehicle to
mobilize investment from the private sector for development purposes and is
mutually profitable to both the parties. It is a hugely popular investment
employed by developing and developed countries though the legal arrangement may
vary from country to country and in different sectors within the same country.
No wonder, at the present stage of massive infrastructure development undertaken
in India, PPP is an inevitable tool for efficient and cost effective
implementation of projects across all sectors of the economy.
Constitutionality of PPP:
The economic crisis faced by India in 1990–91 provided an opportunity for
unshackling the economy by de-licensing a number of sectors. This led to the
opening up of the infrastructure sectors including power and telecommunication
to enhanced private participation. Sectoral policies as well as those governing
foreign investment were liberalised. Sector-specific developments were aimed at
improving the policy climate for private investment.
The power sector has witnessed various phases of policy developments. The
earliest phase, which began in the early 1990s, was aimed to improve the policy
climate for private investment. In 1991, the government of India amended the
Electricity Supply (Act) 1948[11] to allow the entry of private investors in
power generation and distribution. Similarly, there is no need to describe the
importance of airports in the national economy. However, considering the public
utility nature of the air transport industry the government has also sought to
retain a direct stake in the sector. As such the public private partnership
model which exists in India seeks to combine the strengths of both these
sectors.
The Constitution of India refers to civil aviation as a subject on the Central
list, and the subject falls within the legislative competence of the Parliament.
The Aircraft Rules, 1937, have been amended to allow airports to be owned by
citizens of India or companies or corporations registered and having their
principal place of business in India. While the public sector faces budgetary
constraints and lacks required expertise, the private sector faces problems in
acquiring land, obtaining environment and forest permits and other such
clearances, securing approvals from local authorities and overcoming inordinate
delays caused by the Central, State and local governmental authorities[12]. As
Government contracts have strict procedural requirements, the initiation of PPP
started at a very cautious note. Enron and BMIC provide important lessons for
PPP in the country.
At Enron, the controversial Power Purchase contract for extremely expensive
electricity was suspended by the Maharashtra Power Board, which nearly went
bankrupt as a result of high power prices. As reported earlier, the deal was
reached through shadowy, secret negotiations, and in violation of the
Electricity Supply Act. Begun in 1992, the Dabhol power plant near India's
financial capital of Bombay in Maharashtra state was to have gone online by
1997.
It was supposed to supply energy-hungry India with more than 2,000 megawatts of
electricity. But endless disputes over prices and terms of the deal turned the
venture into a symbol of what can go wrong in large-scale development projects
when cultures collide. The first power project sponsored by the Enron
Corporation at Dabhol in the State of Maharashtra ran into a series of hurdles,
including renegotiation of the initial agreement, because of a change in the
State Government.
It also faced several legal challenges in public interest litigation, including
challenges of the validity of environmental clearances. Fortunately, these
obstacles, including twenty-five court cases, have been overcome The first
impression one gets about PPP is that this is very much a Government contract
and hence the stipulations under Article 299[13] of the Constitution are
mandatory.
As a contract between the Government and the Licensee [Concessionaire], it would
be covered by the provisions of Art. 299 and 300 of the Constitution. Thus
judicial review of Government contracts is determined by duty of courts in
confiding itself to check the legality of:
- Whether a decision-making authority exceeds its powers?
- Whether the contract committed an error of law?
- Whether the Contract committed a breach of rules of natural justice?
- Whether the Government reached a decision which no reasonable Tribunal
would have reached?
- Whether there is abuse of powers?
Further, the courts have a held that the grounds upon which an administrative
action in Government contract is subject to control by judicial review are as
follows:
- Illegality: this means the decision-maker must understand correctly the
law that regulates decision-making power and must give effect to it.
- Irrationality, namely, Wednesbury unreasonableness or
- Procedural impropriety
A Study of PPP in Infrastructure Sector:
An Infrastructure contracts deals with public works. Some of these public works
may be divided according to the area and sector of operation[14]: They are:
- Physical infrastructure [bridges, roads, highways, ports, airports
- System infrastructure [electricity, pipeline]
- Maintenance infrastructure [railway, Mass transport system. Waste
management]
- Commodities [natural gas, petroleum, water supply]
Private participation in public works relate to design, construction,
operation, maintenance, renovation or up gradation. The importance of PPP in
infrastructure project need not be over emphasized, considering that India is
targeting a growth rate of nearly 10% per annum. Further, with practical
difficulties in the country there is a considering acceptance that a welfaristic
State with socialistic concerns can move competitively by balancing both the
ideals of welfarism and socialism in building key infrastructure projects.
Judgement of the Supreme Court of India regarding a public-private partnership
project for the development of an area of 14.3 hectares of land at Tehkhand in
South Delhi, 29/06/2016
Judgement of the Supreme Court of India in the matter of
Delhi Development
Authority V. Kenneth Builders & Developers Ltd. & Others[15] regarding a
public-private partnership project for the development of an area of 14.3
hectares of prime land at Tehkhand in South Delhi for the construction of 750
premium residential flats in a self contained community to be sold by private
real estate development on free sale basis.
The appellant (Delhi Development Authority) is aggrieved by the judgment and
order dated 30th July, 2010 passed by a Division Bench of the High Court of
Delhi in W.P.(C) No. 10647 of 2009. The grievance of the DDA is that even though
the High Court held that the project land was Residential as contended by the
DDA, yet the High Court held that in the event construction activity thereon is
not permitted by the Delhi Pollution Control Committee the developer (Kenneth
Builders) would be entitled to a refund of the entire amount deposited with the
DDA pursuant to the acceptance of the developer's bid in an auction, along with
interest thereon.
The appeal filed by the DDA is dismissed. The DDA should now refund the deposit
made by Kenneth Builders with interest at 6% per annum calculated from 11th
September, 2006 till realization.
Conclusion
Judicial activism connotes the assertive role played by the judiciary to forced
the other organs of government to discharged their assigned constitutional
functions towards the people. It has held reinforcing the strength of democracy
and reaffirms the faith of people in rule of law.
Judicial activism may have been force upon the judiciary by an insensitive and
unresponsive administration that disregards the interest of the people and
that the nation does not suffer because of the negligence on the part of the
executive and legislature. Former Justice S. H. Kapadia said Parliament and
executive had well-defined powers under the Constitution and these needed to be
respected by the judiciary. Legality and legitimacy are important concepts and
go hand in hand. If there is excess of judicial overreach, then the legitimacy
of judgments will be obliterated, he warned.
However judicial activism may be a welcome measure on in a short run where it
helps in maintaining the rule of law and allows one organ to sustain the
administration of the country when other organs are not performing. If it is
practiced for a long time it may dilute the theory of separation of power and
the doctrine of checks and balances.
Recommendations
When Judges start thinking they can solve all the problems in society and start
performing legislative and executive functions (because the legislature and
executive have in their perception failed in their duties), all kinds of
problems are bound to arise. Judges can no doubt intervene in some extreme
cases, but otherwise they neither have the expertise nor resources to solve
major problems in society.
Also, such encroachment by the judiciary into the domain of the legislature or
executive will almost invariably have a strong reaction from politicians and
others. However at the end I would conclude by stating that judicial activism
may be good for protecting the fundamental rights of the citizens and protecting
their interest from the vicious bureaucrats and politicians but extreme activism
will lead to overreach of judicial powers that may lead to a misuse of power by
the judges leading to arbitrary decision making as well tyranny which may be
against the rule of a democratic country and so to ensure that no arbitrariness
takes place judicial review should be practices by the respected Judiciary
within the purview of doctrine of separation of powers and checks and balances.
Bibliography:
- Judicial Process and Precedent by A laxmikanth Fourth edition
- Evolution Of Judicial Activism In India By Ravi P Bhatia ,Journal of
The Indian law Institute Vol. 45, No. 2 (April-June 2003), pp. 262-274
- S.P. Sathe, Judicial Activism in India (Sixth Indian Impression, OUP
2010) 17
- M.P Jain, Indian Constitution Law ( Eighth Edition 2019)
- Kutumbale, Vishakha & Telang, Vidya, PUBLIC PRIVATE PARTNERSHIPS IN
INDIA (An Overview of Current Scenario). (2014).
- PPP Cell, Infrastructure Division, Department of Economic Affairs,
Ministry of Finance Government of India, Guidelines for Post- Award Contract
Management for PPP Concessions
- Klaus Felsinger, Asian Development Bank, Public-Private Partnership
Handbook
- Bandhua Mukti Morcha v. Union of India – Page 7
- Delhi Development Authority V. Kenneth Builders & Developers Ltd. &
Others -Page 12
- Hussainara Khatoon (I) v. State of Bihar. Page-8
- M.C Mehta v. Union of India – Page 8
- Municipal Council, Ratlam v. Vardichand,- Page 8
- People's Union for Democratic Rights v. Union of India - Page 7
Written By: Abhishek Roy, L.L.M - Jogesh Chandra Chaudhari Law College
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