.l.

-I.

t''l'3 e ..cr~cnce of tm \JOlfa1'C Stat", t':e fu.'1ctio?1s of -~oder:1 Govcr:u:,c."lt ,

h~ '1ocorr,e ...o!'e complex ::.'1: tcc'nicd too . T·~ le&iSlc;';ure , -:.::n .:."3 l:Ore ,

'i'l-ic lcsisl -t::.on i flsued under t1:ri.s d.elc gated .'.lut · .ority' s c::.lled dolc~atcd

.:en:.aI"/ lmr. •~-1-) le_,isl.'.'tu..T'C or the P rli ......c:1t · _s '1eithe :i.' t:-.e tir.:ie

11::,ccisL:tion to- iay i3 , t 1-o rofo::c , ::!. ftm.ction o.:: t:10 ;..dmin..:.strcl;ion .

T::ie 109-slative process cLbraces t '::e ,-,'10le tr-L11 oi: eve:its fro~ t·10

conceivlng of a ucOPure to i':.s final enact.went o:· the Presic:cnt- in-

Pc!'lio;.ient . h r·ie l :?.ttcr, :'Dwever, ,refers en··c~inci t'1.e lc.w in '.:>ro-::.d

out- lines on]y i . e . in cenc rnl principles lc .,vinG t~e det:L.ls to '.Jc

::'ill"d up ':);; t::ie e:-:ecutive in the Li:.lediate oont.ext of the situ'1t,ion .

It is true to say t:bt, 'i"·1e ½ulk of delezated lecisl.,tion :1 s , :~O\;ewr,

11

2
been enorr:.ously incr9a,9cd to oect t'"l:? needs of t:1e modern 3:,nte 11 •

Hith t!:e growt 1 of celc_;at'Xi lcgisl ..,tion :: tiodcm lec:.:.;1'1ture

finds itself in a state of diler..

1. Griffit·. J . l ... Ci. and 3trect ·:. 1 Pl'i -x:ipleG vf _,J;ninistr').;;i,e L u '
..:>ir I s s c Pitmrn u Jons , Lon~n 1952 p . 29.
1
2. He.de ::::. J • .:> . and P1". illip,s G. G. 1 Jo,1stitutionoJ.. Law ::::..ition I'./ ,
Longi:..~ •s Green u Co . Lo, on 1953 p. 325.
d~c;er of e·:oc.itiv e autocrac y ::iJ..::;o . All t:m s r, ,e delni:;cte l legislat ion

i::. cii:uctly :-zlated to c~s c; P r 1 i~.ont , 11 rclc.tJd os c' .:.B. to p:i-~nt ,

a ::;rO\rln.., child c "1 lod upcn to relieve t ie p::i.ro'lt J of the :,trcin of over
1

~.-o r k a1d c s.:> ole of atton (!:_,"l__; t o r..iino r c;.,tter.. •.lti.le tr..G pa-~:.it ..• ~.!la.gos
3

D:::FI:rurc. r~ .
•
Dele..;a.ted le;isl_a t ion h~ e::in dc.:'inec:! in various m~/3 . .o quote

tln Donou::;: ..o'!'C ~o..1L:i.tt.ee ,

11Dclc go,ted legi::.lc.t ict1 ·••"f'J ,..Cc:.!l eit:'l:)r t '.13

e:::ircisc by a ::;..;,bo:-di!1-te ·.ut'10ri ty, cuch as a ..inistcr , of 1;· c lcgislc.-l :.i·P-

ot hor
4
statutor y 1ules end o r _c r.3 11 • l''.is typo of 1 ~:---L_ ki.n.; power is delegate d

$d sho...tld be distin(;'. .iished fro1.:1 t!~ oric;in:tl . ~ T·ie le ;isl ative uutl-x>ri ty

under a Gonstitu tion ccnnot be t roa~ed ::J3 c.ele_,c.t ed; it is oti.si.n, l .

~lillis '.1n;:; defined Dele_;ate d lef_;i'll:i tion in a di :lerent •1q. o quote

'1i,u , "In e::;::::e:ice t:ie 1-YinG drnn of a ecneral ::::u1c i s legi ; l$ion c.11.d

c:010 ;ated lc;;i::.la .tion i::; t ·1e i)est n:-.:.c ~or t:B proce::::s 11::nn ccrricd out
6 00 in::errod fron
by mi inferio r at the cor:,. ·md of t ]'X) m.ip~rio r11 • It •::iy

tm definiti on t:urt; t'1e de lef;atie is inferio r to t'n d.ele.::; tor, nd t 11rt

lie :cict.s cl, t'JC cor.. ..end of t"t-ie 1-:ttcr. It r;,~- , ·K>~rever , ·J:) 1o~ed her.J :.hct

t -n lel'3::;c.t cJ po~~r i ,:, su'Jor lin to to t·n ori.;lnn. l po,ier or !)a:' .i ;;::.icnt ,
1

'.mt a d.elc~c.tc e :i.:.; not .1ece3sc .ril-r inferio r to t:~ delc:l'..';o::-. For

exai..!)lC , ~,hen P ~rlLJ:1C' 1t ----- ----- --=- ----- ----- ----

3. Car:-. DeJ~.:; ".£.•"d ... ,e,:;isl :{; io'J , Jr....'.Jti ·Ge ,..m::.,c rsity .Pre:rn ,
OCJ.i'ni.C:._,-e , 19::::1, 1 ,.2.
1 ,,
· vOu.uu.
rt 0 -" ...v'lC · tt Ce on ••J..'1J.-.> ,., •,ler~
~~ 1 .Q
· · "te -'-"' -J ,
'~.,., , n ·• ..,sn'-'
.uv-•C.O .L•<
1 "'2 •J . 15 •
.J-,
.t• .,epo
'

s. Griffit "l, ' Jonntitu tiona,l SiG .tli'ic .:.:ice o ... ..Jcle,_;ated le_;..:;:!., :t.:.?11 ' ,
1.ic'i "PL~, .,evic•,1, 7ol.49 Jt.nc 195') , P...:;c· . 1179- 1)30 .
1
6. :1
,lil ]j_s , ' Lr.J..i, nen::. rxv ;l(:nre::-n of t:-e ~n.; lis Govcmce.'1-!-, ,) ;l?"-~i.en t :
p . 49.
 delegates power to the Crown, the Crown cannot be hold inferior t o Parliament,

tti.ugh the delegated power of the Crown is inferior to that of Parlia ment. The

delegation, it may be added, does not necessarily imply a Command. E.c.s.

\fade and G.l. Fhillips explaining the term delegated legislation observe, "'"lhe

function of legislation - the neking of general rules is a function of

Farliament. When Parliament delegates that function, we speak of delegated

7
legislation. " In the words of Sir John Salmond, " Legislation is either

supreme or subordinate ••••••• , subordinate legisla tion is that which

proceeds from any authority, other than the sovereign power and is

therefore, dependent for its continued existence and validity on some

8
superior or supreme authority."

Thus Delegated legislation r efers to that large body of rules,

regulations a nd bye - laws being constantly framed by the executive under

powers delegated to it in t his behalf by the principal or the parents A4cts

pas sed by the legisla ture. These rules though framed by the executive are

issued unde r the authority delegated to it by Parliament.

Foms and Nomenclatures of Delegated Legisla tions

t The term delegated legislation does not include prerogative orders -

in - council in England becaus e such powers to legislate is treated inherent

in the Crown. But if Parliament delegates legisla tive powers to the Crown,

G..
7. Wade, E.c.s. & Rlill ips &::Bo - Constitutional Law, Ed. IV, Longne n' s
Green & Co. London, 1953 p. 3~
8. Vide Hewritt, D.J . - Control oj Delegated Legislation, Butterworth &
Co. Sydney, 1953, P• 1
 4
• the legislation so made comes lllder the catagory of Delegated Legislation. 9

In India too the ordinances issued by the President under Article 123 of

the Constitution and also the rules issued by him under Article 309 and

some other Articles do not form parl of delegated legislation. But the

rules promulgated by the "President under Acts of Parliament such as

Section 38 of the Government of Part State A.ct of 1951, which has now been

repealed and s. 16 of the High Court Judges ( conditions of Service Act )

of 1954 and other Acts fall under the class~ Delegated Legislation.
"
Ministerial or Departmental legislation assumes a variety of forms

such as rules, regulations, bye laws, schemes, orders, directives, or

warrants. The terms rules and regulations are sometimes applied inter-

changebly. In India :rules are often thought to oover matters of a general

nature where as regulations are concerned with matters of adninstrative

details. But there seems to be no clear cut distinction between the

expression, ':rule' and' regulations'• In practice they are used withrut

any discrimination. There is contrast too in their application.

Under the same Act, a :rule and a regulation sometimes deal with

matters of a similar nature. It has been noted that the appropriate

authority is empowered to make rules, to give effect to the provisions

of the Act e.g. rules to be made by the Central Goverrment under Section 44

of the Air Corporations Act, 1953 provided inter-alia for the terms and

conditions of the service of the general managers of the two Corporation

and such other catagories of 6fficers as may be specified from time to time.

Under sub-section 1 of the section 8, the terms and conditions of other

9. Wade E.c.s. & Rlillips G.c. Q>nstitutional Law p. 70

 5
Officers and employees, however, were to be determined by regulations

that may be framed by each of the Corporations under Section 45 of the Act.

Further the Acts which provide for both rules and regulations usually lay

dowm that regulations are to be made not inconsistent. With the Act and

the rules made thereunder. Section 50 Sub-section 1 of the State Bank

of India Act, 1955 says that the Central Board may make regulations " not

inconsistent with this Act and the rules made thereunder". Similar
10
provisions have been found in various other Acts. The General Clauses

Act 1897 does not make distinction between a ?Ule and a regulation. To

mention Section 3 ( 51 ) of the Act, " \\here there is any inconsistency,

between the rules and regulations made under this ~ct the rules shall

prevail." However~the term' !rules' has usually been used for delegated

legislation which deal with procedural matters.

The term ' regulations ' is sometimes used for those instrllllents

which relate to matters of general importance as for example the National

Insurance Regulations where as the te?m ' Rule ' is used for instruments
11
which deal with procedure. The term' Order' is used as a direction to

any individual or to a body and contains a definite command. However,

the use of these termsis very wide. It is used for many puzposes and
t
the contents of orders are often indistin~ishable in their nature from

these of rules and regulations. The term is also used sometimes in a

gene rat sense to cover other sub-laws.

10. Vide the River Board Act 1956; the Mus,im Wakfs Act, 1954. The
Food Corporation Act, 1964. Post Gratuate Institute of Medical
Education and Research, Cllandigarh Act 1966.

11. The Defence of India Rules 1939.

f_
 8

The tenn ' notification ' is used for various purposes. A vast
majority of the statutes that empower the making of rules and regulations
says that the Goverment ( or any other authority) may b, notification
in the official Gazette make these rules or regulations. Such rules and
regulations are published under the heading' Notifications ' 'Orders'
ane also published at times under the same heading.

A scheme relates to a welfare legislation such as the Employees

12
Provident Fund Schsne. The term' Direction' i s used for instruments
which carry illustrative instrU11tions. In India and Blgland the term
13
is used in the same sense. The term ' bye - laws ' applies to the
laws made by a local body, Municipal Board or Corporations or Socieities
14
formed for Commercial or other purposes. The contents of bye - laws
can not be distinguished fr om those of rules and regulations.

Conditional and Unconditi onal Dele~ated Legislation.

Delegated Legislation may be classified as conditional or contingent

or unconditionat In unconditional delegation of legislative power, the
exercise of the dele1Jated power is not s ubj ect to any conditions. Such
delegation is generally contained in the following phrase, " The Central
Government may b~notification in t he official Gazettee, make rules for

12. 'Subordinate Legiilation' vide' Public Administration' Vol. XXX

Autumn 1952 para 36.
13. Ibid.
14. Crales on Statute Law 6th E'dn. PP• 322 - 23.
 7

r 15
carrying out the purposes of this Act. On the other hand in case of

conditional delegation the exercise of the delegated pov,er is subject to

certain conditions or determination of some facts, for example,Section

17( 2) ( XIX ) of the Medicinal and Toilet Preparations ( Bccise Duties l

Act, authorises the Central Government to exEmpt any dutiable goods from

the whole or any part of the duty levied under this Act where in the

opinion of the Central Government it is necessary to grant such exem"'tions

in the interest of the trade or in the public interest. A legislation is

contingent if it provides for controls and specifies that they are to go

into effect only v.hen a given administrative authority finds the existence
16
of contingencies defined in the statutes. In this ease the delegated

discretion is limited to ascerta in that the contitions and contingencies

specified in the statute exists a nd on the basis of which, to b r ing the

statute into operation. Sect ion 3 ( 1) o f t he Railway Companies

, ( Emergency

~ rovisions) Act of 195l is an example of Contingent Legislation. Under

-1hv.i A.4:
Section 4 of" the Central Government may apply the ~'\ct, if it i s of the

opinion ( i ) that a situation has prejudicially affected the convenience

of the persons using a railway administered by the ecxnpany to 'M"l ich the

~ et is intended to app ly, (b) that it has caused serious dislocation in any

trade or industry using the railway or ( c} that it has caused serious

unemployment amongst a section of the Corrmunity. Further, it may apply t ~

Act when in its opinion such a course is necessary in the national inte rest.

Under Section 12 it may tenninate the operation of the Act when its purpose

is fulfill ed.

15 Section 16 (1) of the Drugs and Megic Remedi es ( Obj ectionab le

Advertisement) Act , 1954
16 Ha rti Administrative Law, p. 154
 8

The Contingent Legislation may also be defined thus" A legislature

legislates conditionally " men it enacts that legislation shall come into
operation at all or in some particular area only upon an executive
17
declaration, or ~on the happening of a particular event. In this case
the legislatllre makes the law by itself but sane other body is authorised

by it to declare as to when and where it shall hav~it. effect. In case

of conditional legislation the legislature does not delegate its ecsential
function of law making to any other authority. To explain it further, it
may broadly be described as legislation, the operation of which is conditional
upon the decision of a s pecified authority, as distinguished from legislation
\lthich is absolute and comes into operation of its own force and independently
of the will of any other authority. In a contingent legislation the law is

full and complete 'tfflen it leaves the legislature. But its operation is made
dependent upon the fulfilment of a condition and what is delegated to any

atemal agency is the authority to detennine, by the exercise of its own

judgement, whether or not the condition has been fulfil~.

,..

Normal and Exceptional Type of Deleftions

Delegated legislation of jio:rmal and exceptional type has been

explained by the Conrnittee on Ministers' Powers in 1932. In the case of

the normal type, the limits are clearly defined ~ the Act. It helps in

its quick enforcement by the law courts. Secondly,it does not delegate
powers to legislate on matters of principles or to impose taxation. The
exceptional type of delegated legislation delegates legislative powers

r 17. Basu D.D. Comnentary on the Constitution of India Vol. I. P. 240

• in the following matters• -

(a) To legislate on matters of principles and even impose taxation.

{b) To amnend Acts of Parliament, either the Act by v.hich the powers
are delegated or other Acts.

(c) Conferring so wide a discretion on a Minister that it is almost

impossible to know ¥.hat limits Parliament did intend to impose.

{d) Abandoning limits of delegated powers not foI'!llally yet actually

forbidding control by the C.Ourts of law. 18

Delegated Legislation and Subordinate Legislations

The tenn • delegated legislation' is sometimes distin9-1ished from

'Subordinate legislation'. The former implies that the legislative power is
delegated by Parliament, whereas the element of delegation is not necessarily
present in all subordinate legislation. Subordinate legislation may be
issued under an Act of Parliament or under the C.Onstitution. In the first

case it is delegated legislation also but not in the second. Articles 98,
148 and 309 of the Constitution of India for instanceauthorise the President
to issue rules. These rules being issued under the C.Onstitution are not
UT,\,
delegated legislation, but since they are subject to Parliamentary legislatv.ff,
they are subordinate. Therefore) subordinate legislation is a wider term then
b \.v-t.~
delegated legislation. Hence it may be sumnarised that all delegated
)

legislation is subordinate while all subordinate legislation is not

delegated legislation.

18. Report of the Conmittee on Ministers' Powers, op lit. P• 31

 10
Justification for Delegated Le~islationi

Delegated legislation obviously is the outcome of the energence

of the Welfare State.- ~nsequent upon the increase in the functions of a

modern State. The delegation of powers is a necessity and a convenient

d~i:u to meet the situation. Parliament in India sits between six to

seven months in a year and passes approximately a 100 bills annually.

However, for the past few years, number of bills passed is going down the

figure of even a hundred bills. Yet the Parliament can not co~e up with the

increasing volume of legislation and s pecially as it can not enact minutely

detailed statutes. Sir Cecil Carr speaking of Breat Britain is of the view,

"No one v.ho looks at a collection of the annual output of delegated

legislation can seriously propose that Parliament should now oancel the

concession of legislative powers and should undertake for the future under

its OMl direct authority all the legislative activities which at present
11
19
are left to His Mej esty - in - Council or to the various public departments.

The Chairman of the Corrmittee on Subordinate Legislation in Lok Sabha in

India has also emphasised the i ncrease of legislative work and consequent
20
delegation in a d~cratic welfareState. Professor Robson has rightly

observed, "The delegation of legislative power by Parliament to acininistrative

agencies in general and to the government departments of the State in

21
particular is now one of the conmon pla ces of the English political life. "

Another advantage of the delegated legislation is that, " the

granting of power to legislate to a department vtiich is administering a

public service under statutory powers can obviate the need for amaending

19. Sir Cecil Carr' Delegated Legislation 'op.Cit. p. 20

20. Chainnan's address on Problems of Subordinate Legislation - Comnittee on
SUbordinate Legislation P• 63, vide Joornal of Parliamentary Information
Vol. VI, October, 1960 ·
21. Hobson W.A. Justice and A\aninistrative Law ' Macmillan London 1928 p.34 .

i)
 l _J..
112 2 Do lec ::i.tcd lc( ;io l tio n int rod uc :rn no ~:i
.'J ili ty
.
bi lls to ... l~c,--e e:~ c,t
·, to ~:-c lo ca l ne ed s .
·tio n . It ca n e~ ily y.clju.s t i.,
in th e fie ld of le[ ;in l
11 _,,,ny o.r t·1 0 lmf.3 .:'f o~ pe op les
'
.i1.i ttc c a!) tly ':e ld
7:: c Donou:;hmoro Cor
1.Jle to po :;s
t'i. ·,t el ,,s tic ity is os: Jc lti 1 . It is inpo::;:rl.
liv es so clo se ly
ic o:: ~.e')SlOS or ou t )re
1 ok of
t to co nt ro l Dl1 o_::,id c...
an .\c t P rli" lue ..ll
a;3 t:n
..,_;3e DJ3 d wl nn .:..t oc cu r:, Dnd ::mch ::.o · su res
fo ot encl r:.outh di '30
(l'l

of too
st '.)e di ffe re nt ly ap ::,l ied in di..::'fcrent ,::>arts
Pu '1l ic "b ..,l th /i.ct r:1u

!l( ; u., for sce n

10 ..;i slc l;io n 'l.ls o L,o kes all ow nn ce s fo r no cti
Dc lc~ "':t cd
e Pu rli c;j cn t
ua r, fa; .in e md op ido ...i cs . To wa it ti ll ':.h
co nti ng en cie s ]jJce
.:1ction
p~ s nc ce ss n..r--J l;:.w nu tho ris inc tm nc ce ns ary
me ets ov e r a.c;cin a,"ld
se ns ib le. P.: rli" J;l ent
.t:i tre er: ier cen cy is 11eitl:Dr pr ac tic al no r
to cop e ..ri

sec ure
of the yi ew th1 .t , th is is na tu ra l e.1ough to
Si r -Je ci l c., ,rr is
rcr n.ust ')e
U.' 1cor:ifort '..Jlc ex pz ric nc cs , le ci sla tiv c po
su rv iv al rror: t:1 esc
24 St .rt ;is tic z of t:.10 :.1."lm:.. "\l to ta ls of ru les ,
nt ~c m. s .
dc lc. :;a tod .:..'1 too wi d:r
!.'.lli)lic chc rac -;:. er ·~' ill
--ol~ ~h is cle ,,.r . It
on s en d oro o:- s of a
reg ul, .ti

:in fo rce .
of re gu l ·ti on s rer .i~ ins
ce sJi t.a tes fir m
tlD ::.it.u ...tio ns wh ich ne
~Tit h tm cro pp int up of
su f,i ci cn t po,.ers -to
n ::i.,d ac tio n , t~ of fic in. ls are le ft wi th
att en tio
str ati vc · mio ::i. to
ary ru les ·:n d reg ula tio ns fo r ti.J nc ly ad J,1 ini
1.,uke ne ce so
lp ~o ,oo plo .
ren de r al l 1o ss bl c ro

t . p . 32 7.
22 . ~1d P'' d.l lip s . 1 . op . Gi
Ha de J . :J • ..:> .
. Gi t . 23 .
on 1d ni sto rs Po uc rn ' O.)
23 . llc po rt of t:1 e Go u.. itt ee
Pnrlia1-Dnto.1:,r
:::r ,:;i r Ce cil :'o r~r urd to Jo' 1a , ::. ::c rs cl l' s '
24. Ca
ed Lc ?,s l ·ti on ' ). 7 .
;:ju".)Crvioion of Dc bg ~t
r
 12
Further , :, ro le~is7.ation 0-'1 "bcc':mic al .;ubj 1cGo neccssit-ites )rio r

to t:1.e .1J.nistcr::., t''lin.;;, u,0•1e casil:,· fo::-u-:rd,

nce:is 0'1ocure t ·-a prcpo.ro.t lon of dclo~, tcd 1J0:...3lation unle.;;,..; sccati.ty

co 1sioor:itions c.rise . It is a pro.ctico.l udve,ntoge over the l aw. D:?le -;nted

.
le~icl ~ti on is freau::mtly used to meet neu si tu9,tions ·ind to -Drovioo the

people \.d.th Or:$Y mles ~d rei:;ulctions to live o:rnfortribly.

under tm condi.tiono stcl,ed ,,!)ovo , :.he field for dcle~:1ted lG[;isl:;-tion

V" iou~ Jami.on le-,J.t:1 Jountrics . :'i1J Coir~.uttce on __. -uster::; 1 po rcrs in

Q_'C...,t Britain ::,o.:,Ul -..rly known ~ Donoughrnore Co.,ui.ttce S'.JCcificolly o'?cc:-vad

-{ i:11"32 in its r;port n.t1c tnrt.h L: ~11:t if Pc.rli')),_ent \/CI'C not uilli:1f; to

dele:-_;at.e lo:.H ~G po1.1cr P:..rli~ent ,puld '..)e unci:>le to ~-p.ss (;'13 kind e,nd
2
.'
qu...:nt 1vY Of l O ~~
. l ..:.vi
-'- . on U lUCll
. ' LOa~Ul
:i,, II pUJ_1C
• 1 · · •
Ol)1n10ll •
rcq,::.ircs n• .5 -,,10

Co:m.d.ttee ~..._s listed sLx re,;!lo!'ls lor the cicsiraJility oi dcler;nted leGiSlP:tion

::. .... ch as , tle pres::;uTO U!)Oll p:-irli1ment ....r;tiLle , tcc'.nicol no:turc 0~11odcm

lcgi~lation; in 2bility to \.Ork out tln odJj_•tlstrutive mc.c:rl.ner:,' i:1. ti.ie to

in delegated l~;;i.:lation; a:'fordine opportunity of utilini!1G the lessons

.?...'1
26
of experience for r.1eetin:;t!-n :1ecesJ:'...t:, fo!' sudcbn lo[;isl,,tivc cation .

To troso 14• ')".l uddcd one ~ore rcqSon u'hy Jcle_;ated J.e [P.Sl.?.:tion.:.in incrc ~sin •

25. Rcriort. of tho Oo,:ti:o.ttcc on 1.iniste rs ' :xi,rcr:J op cit . p . 23.

26. I~id ~p 51. 52

r
 l :J
r :w.atter can be a!'r-'1~od
- in a lo::ical
- .eon,1 unco"l~rolled by t.,...
,!;' ..., .....: ·•r""
... .,__,Qi.. ,:, 0 in

purJ.io1rentar.r procedure .

3ut cl.l i:::; not quite '.,,ell wit ':1 :cb~atcd lcGUJl ·tio.11 . T'10 --.;JU:JC of

is fully co:1"c~ous of tl12 fact t:i.?t deleGat::.0..11 of: le;isl~tlve po;ro:-s is too

e::';e,1sive 1.11d thcl, it h~ir,tpcllcd itself to sur~ndc:- its 0\-ffi ft.nction in

t ·-e : rocosJ . 'l'llc criticisu in not irJ_::ioood <1uainst tln dclc::;ntion ::;;, ouc':l
;)Ut eo::linnt tin out put c.,"1d tl-n !lo,turc of doleeated lef;isl tion ~ cl.so

11
it., al.lied ::mbsidi-iry or_;:::ns . ~o 1uoto .Ji:::- ,h.rrcn Fl:::;her, 1'!1.Jrc hes been

for sor..e ~ aro a dcrigo rous ~oveocnt to U.tilinish t ''e ::ouse I s sey on

le._;1.SlJ.tion :in .:.m wrm of innu..:3rablc ...~.110 ... , regul ·tions :-tid orc.o:., · ....vi."lg
27
t' force of L .:.u . l'.1e urc' critic of delegated lc __;:i);la.tion Lor..: "bu.ir'v in

his 1:rew Despoti:::;... 1 h~ eouo".)e~ t .is .,,ovc..,c.'lt .'.lS ::. conspiraCj· to oust

P·rli .,.,m.ent end t'1c Courts. To quote hir.l, 11 , r;;uss oi evidence 9:::;tJ:,lishes

tre f'"'.ct t '1.:lt t.·10re is ln e-dstonce a pcrsist,cmt :-id i:iell contri•red system

intcncbd to :?reduce ,nd i n practice producin..; a dcs~)Otic power .r"uc:1 at 1

one d'ld the s rr:o tinn pl ,,ces govem:.•crrt de_?:::.rt:r,ents -i)ovc t~1'3 soveroi:J:1t:r
28
of P:::.rl.i.:llJont .:!f"ld Jcyond t 1~ jurisdiction of the :Jourts .

Tb3 ::;,fo:-eso;id fa a f,To.ve d21ger in tho dclc~c.t..:.on of IG_;i.:;l ti7c

po,.rcrs . Furtmr , it may '.Je stn.t1d t}1a.t t:l) •.ct., of Pc.rlic...ont 1.1'0 often drai't.ed

27. All en C.K. ' Lau ena. OrJ.crs ' p . 332.

23. Lori :!eu:.rt I T;1c fcwDcspotisr.. ' p. 11.

', in broad out,---___lines which contain only the bare principles. The departments

ar e thus left with a wide discretion not only to work out the details but

also to provide for matters of principle and to regulate the matters which

closely affect the rights and property of the subjects . Delegation of

l egislative powers is generally made in a simple phrase e.g. •io carrt

out the purposes of the Act' to give directions for the removal of

doubts or difficulty, to grant exemptions fDa,m the operation of certain

specified sections in v.hile or part of an Act or to add to or emit a

matter fro m a schedule to the Act . Such delegation of powers is so extensive

that it not only arouses a wide-spread suspicion and distrust of the

machinery of the government but at the same time it throws civie and

personal liberties in danger.

In another way) delegated legislative pawers by oJting jurisdiction

~
{
of the courts may deprive an individual of his right to seek redress through

the agency of judiciary. There are acts which contain a non-obstante

clause by which the departmental legislation has effect not withstanding

any thing insonsistent contained in any other law. Thus delegated

legislation under this kind of clause encroaches upon the supremacy of

Parliament.

The ab>se of delegated legislation does not end here. A step further,

this kind of legislation is sorretimes permitted to anrnend the provisions of

an act. The opportunities for parliamentary serutiny and control over

delegated legislation have been hitherto inadequate and there is every

danger that the subordinate authorities executive and other subsidiary

departments may go far beyond their master, the legislature while exercising

delegated powers.
 Provi sions for p'..l'Jli clt··, pr-wio un pi':)l.:.c.:.t: a1tl cons:..
11t--tions
~r.i.t'-1 t'E e.ff.Jc!:.c i interc ::::ts etc. arc not so.tisf .~ctor ;,·
for pu')li c c 1fi~e ncc .
'l..'1d yet iurt'1 H t·"'.O prcvi liced ~d superi or posit ion of
the to.-te a.s ai:;ain st
its ,lt.':>j acts in lor;tl procc edin(F pl .c'JS t'.13 l ,,tt_c r
t ,, dofi."l i ~c <lis-
ndv.3.-"lt.zi&e in o·)t.ai nin-; rcdre. :;s in tl~ Court..; for the illo:;
31 ~c ~!l cou,.d .ttod
. purnu pncc o f dc 1ceo..t e d 1 ceis 29
1.n . 1 l:t.ion .

I n vieu of the a)ove aited 10.cts 2nd c"1.::;i :01· 0.t.:.on::: ,

t :o need for the
o::e::-cisc of b-od'.:.o!' vic;il :ice on :,i1.0 p r~ of o.ut ritie:: i in po·re::- 1:,.rcl.J..:,· needs

over tho;;,e in ,tiou power i::: repo::,e In tho odom Socio l .:>c1~ co .:3to.te ,
tl~ centr e of {.;r,,•,it.:r has shift ed from lec;ia l~tur c to
o.c1J.:li.' 1istr~t.:.on .

Lord ·~•.,a rt loqds s1...c·-i critic s in obscr-r.l,."l.g t 11--t t'13 old

dospo tis1.. u'iiC:-i wa.J
do!'c:.11:,ed offer ed PL..r,..:.~.cn t o. cho..lls.n o . i'h3 ne·, ciospo
6 tis. ·.i.ic::i is not
yot defo'l ted civcz P'l.rli ri cnt :n cn ..t0nth ctic. _o quo:.c him the str~o g:r
is differ e"lt , '-)u.t the goct i-:; t'10 srrie . It is to subor din·-t e
P~li-: ...ent , to c·,ade t'~ Court::i ond to rende r tno •.rlll or 1;1-e co.pri ce of
the E::rocuti ·e un;ot ,tored ~d suprem e. 30 Sir C. K. w.len
co .1•. ro':lorc..tes t;ris
•1i.e·,1 ::nd i\1rtl: c r ioint::. out .:.n tm for.., of wamin f; th ·t , 11
Te hr.vc re .c:ie l a
junct u ·c ui1m •.re c-n ~o lon:;e r :)0 conte nt •.o.tn self - co!'.lg
ratlllc..t.:.ms but
.1ust ov er- 11 some of th3 co'1st it.xtio nr1 pri.nc iples vhlc.11
WO have '.Jeon

~ . Rzpor l 1 'Jo;... •.ti.tt3e on .. .:.nist era Po·re ro 1932. o. , cit . p . 5-1•

5'.) . Lord .ie·1nrt . ' Tho lcu J3s otisw 1 • 17.

 lu
31
taucjlt to think most fundamental . " Elaborating the point further

Allen points out t hat "The Civil Service Cont.ains pereons of extremely

autocratic temper. I have known some who did not disguise their eonterrpt
32
for farliarnent and all its works"

In view of all the dangers in the practice and process of delegated

legislation it appears imperative that effective safeguard against the

above authority are called for. The safe guard which are available to-day

may be classified on a broad base as Parlimentry, Executive, Judicial

and enlightened public opinion Ythich have been discussed in the Chapters

that follow.

31. Allen C.K. ' Bureaucracy Triumphant ' P. I.

o-p. c.U.'
32. Allen C.K. ' Law and Orders \ P. 331.