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सं विधानातील अस्पष्टता कार्यकारी मं डळाच्या

निष्क्रियतेला चालना दे णारी ठरू शकते
 पूर्व परीक्षेसाठी : राज्यपाल, त्यां चे अधिकार आणि कर्तव्ये, कलम 200
Explained by : Abhijit Rathod  मुखTHE
्य परीक्षे
HINDU साठी : GS पेपर 2 - भारतीय सं विधान, सं वैधानिक सं स्था, सं सद आणि राज्यMonday,
विधिमंDecember
डळाची 26,
रचना,
2022
कार्ये
Editorial
अधिकार आणि त्यातून उद्भवणाऱ्या समस्या.
Mumbai

Constitutional silences, unconstitutional inaction

W
hen the Constitution was adopted unconstitutional devices, thereby directly The Sarkaria Commission went to the extent of
by the Constituent Assembly, the attacking the federal edifice of the Constitution. suggesting a cure to the terminal illness plaguing
e founders left deliberate gaps in it
to enable a future Parliament to
Causing delay to assent Bills will be an arbitrary
exercise, which in itself is constitutionally
the federal ecosystem of the country. It was
suggested that delay from the side of the
tion modify and amend the Constitution that was in abhorrent. Governor in granting assent can be avoided by
tes accordance with the aspirations and the will of The additional issue of the President not acting streamlining the existing procedures; by making
the people. This ostensibly gave birth to a Mukund P. Unny swiftly to grant assent to the Bills reserved by the prior consultation with the Governor at the stage
t to ex­ Constitution with glaring misses. Governor for the consideration of the President of the drafting of the Bill itself, and by prescribing
is an Advocate on
Kalyan One of the silences in the Constitution is in Record in the cannot be missed. The President has not yet time­limits for its disposal.
hat ran Article 200 which does not prescribe a timeline Supreme Court acted on the National Eligibility cum Entrance
(except for the Governor to provide assent to Bills sent by of India Test (NEET)­exemption Bill passed by the Tamil Delay thwarts reasonableness
ded ad­ the Legislative Assembly. This has been used to Nadu Assembly, after it was referred to the In the realm of administrative law, unreasonable
rice or advantage by the Governors of various President in May 2022. There is no timeline delay in granting administrative sanction would
grams a Opposition­ruled States to obfuscate the mandate prescribed for even the President, under Article be violative of the rule of law. Therefore, it
the Na­ of democratically elected governments. The 201 of the Constitution, to decide on the outcome implies that the Governor will have to grant
KY ab­ examples range from the Tamil Nadu Prohibition of the Bill. Even as there is no timeline for the assent or decline the same within a ‘reasonable
the ex­ of Online Gambling and Regulation of Online President to grant assent, there is a timeline of six time’. ‘Reasonable time’ is what is necessary,
political Games Bill, 2022 (passed by the Tamil Nadu months applicable to the State Assembly to under the circumstances, to do conveniently
Party in Assembly) to the Kerala Lok Ayukta reconsider the Bill if the President decides to what the contract or duty requires should be
includ­ (Amendment) Bill, 2022 (passed by the Kerala refer it back to the House. done in a particular case. In Keisham
ontinu­ Assembly). In Tamil Nadu alone, almost 20 Bills Meghachandra Singh vs The Hon’ble Speaker,
d that it are awaiting assent by the Governor. The Call for reforms Manipur Legislative Assembly (2020), a case on
der the situation is no different in Telangana and West In a consultation paper, the ‘Institution of anti­defection law, the Supreme Court held that
der the Bengal as well. Can the Governor just sit on Bills Governor under the Constitution’, the Justice B.P. the Speaker must act on disqualification petitions
ries for endlessly? Jeevan Reddy­led Committee states that if the against the defecting MLAs within a ‘reasonable
ers can Governor withholds assent to a Bill indefinitely, time’. It clarified in the same judgment that
for free Constitutional scheme “such a course will not be conducive with the reasonable time is three months in the case of
yodaya When the draft of Article 200 was discussed in decorous regard a Governor is expected to the disqualification petitions.
g of free the Constituent Assembly, Prof. Shibban Lal rules of the Constitutional game....”. The The concept that the Queen reigns, but the
of 81.35 Saxena rightly highlighted how there is no time ‘National Commission to Review the Working of Ministers rule is the bedrock of the Westminster
us 2011 limit prescribed for the Governor to act. In the Constitution’ that was set up by the A.B. system. The Governor’s duty is only to ensure
entitle­ Purushothaman Nambudiri vs State of Kerala Vajpayee government in 2000 recommended that that an elected government is working within the
holders (1962), a Constitution Bench of the Supreme “there should be a time­limit — say a period of six parameters of the Constitution. It does not mean
nment, Court clarified that the Constitution does not months — within which the Governor should take that the Governor can sit on the Bills indefinitely,
nefits to One of the
impose any time limit within which the Governor a decision whether to grant assent or to reserve a merely because there is no time limit prescribed
mes. By should provide assent to Bills. Interestingly, the
‘silences’ in the Bill for consideration of the President.” It is also for the Governor to decide on the bills. The
for this question as to whether the Governor can sit on Constitution is important to understand the real objective Constitution should be read contextually to
ich has Bills indefinitely did not arise before the Court; in Article 200, behind Article 200 requiring the Governor to provide a meaning that the Governor must act on
h crore the Court too had no occasion to provide an which has been grant assent to Bills. It was felt that an the Bills within a reasonable time, say three
ut wel­ authoritative ruling on it. However, the Court has used by some independent Governor would be necessary to act months. The constitutional silences should not
maintained that the Governor must honour the Governors to as a check and balance, to avoid the state­enacted give way for unconstitutional inaction, leaving
d distri­ will of the Legislature and that the President or a law being repugnant to the Union laws. Some space for anarchy in the rule of law. As Justice
ally ex­ obfuscate the
Governor can act only in harmony with their State governments expressed an opinion before V.R. Krishna Iyer put it pithily in Shamsher Singh
ress re­ Council of Ministers. When a Governor, a central
mandate of the Sarkaria Commission that a “Governor will and Anr. vs State Of Punjab, “may be, our
rnment government­appointee, withholds assent to a law democratically act as a safety­valve against hasty legislations and founding fathers were not political prophets who
also re­ validly passed by the Legislature, he is undoing elected by their operation enable the State Government could foresee glaring abuses or perverted
t a time the will of the Legislature through governments and Legislature to have a second look at it”. developments”.
heat by
gh. The
ed basic चर्चेत का?
A yatra as darning material to repair India’s gashes
income
to buy
have af­  सर्वोच्च न्यायालयातील वकील मुकंु द उन्नी यां नी “द हिंदू” वृत्तपत्रातील आपल्या सं पादकीय लेखातून सं विधानातील अस्पष्टतेमुळे कार्यकारी
course,
tion, in­ मं डळाची निष्क्रियता वाढू शकते हे विविध राज्यातील उदाहरणां सह स्पष्ट केले आहे . उन्नी यां नी आपल्या लेखात मुख्यतः राज्यपालां ची भूमिका
seholds

T
he Editorials and articles written in the aspiring and daring to rewrite it and reverse the amount to questioning its independence.
helped आणिopinion
सं विधानातील कलम
section of The Hindu200
are by या घटकां ना लक्ष्य करतानाgains
आपलेmadeविचार मां डले
at the birth of theआहे त.republic. Of
Indian Joining the Bharat Jodo Yatra and the march
th con­ eclectic, eloquent editors and writers. For course, constitutions need to be subject to with Congress leader Rahul Gandhi is an
s rights  aसंchange,
विधानI urge
सभेreaders
ने 26toनोव्हें
listenबtoरa 1949 रोजी भारतीय राज्यघटनाrevision
high­school स्वीकृand
तक े ली. परं तु त्याचवे
amendments, but theseळ ी संbeविधानकारां
must नी भारतीय
unbiased comment जनते च्याpresent
about the आकांsituation
क्षा आणि
olution drop­out, an entrepreneur and an artist. Even the done without bias and through reason, by perpetuated by a government. The party
hich has
s Tamil
भविष्यातील
statesman सुधारणां
Chief Minister च्या दृ
of Tamil ष्टीनेK.जाणीवपूर्वKamal
Nadu, क घटने ला लवचिक
Haasan
बनविताना
holding घटनादुरुस्तीची
on to our independent तरतूद केली.
nation’s founding affiliations of the organisers of the march do not
Kamaraj did not get this opportunity and I am principles; not by subverting them. matter. I would have joined a similar march
anyone honoured to do so, speaking to readers not with against the Emergency in the mid­1970s
When I say this, I do this as a political centrist
is an actor, politician
m. cleverness, but with his wisdom, even if it is and founder of the and whose centrism is sometimes mistaken as irrespective of the fact that my father was a
second or third hand.
एखादे
“opportunism”. Centrism­imbued varied
 विधेयक राज्यविधिमं डळाने सं मत
former Congressman of the party led by Indira
केल्यानं तर
सं दर्भ
Makkal Needhi Maiam
(MNM) thoughts and ways of life such as Buddha’s Gandhi.

राज्यपालां समोर पुढील 4 पर्याय उपलब्ध असतात-

The essence of the Constitution
m The Constitution of India is as important as the
 कलम 200 : भारतीय सं विधानाच्या कलम 200 मध्ये राज्यपालां चे
freedom struggle was for our country. Arrived at,
ing after being discussed at length by representatives
राज्यविधिमं डळाने पारित केलेल्या विधेयकाला सं मती देणे, नाकारणे
of India’s Constituent Assembly on the one hand
been measures
and enlivened by the views and the experiences
uctions
तसेच ते विधेयक राष्ट्रपतींच्या विचारार्थthe राखू
of our freedom fighting generation on the other,
न ठेवण्याविषयीचे
e initial the Constitution was intended not only as a citizenry
paediatric prescription for young India but also
अधिकार स्पष्ट करण्यात आले आहेत.
merged
cricke­ for the adult and ageing India as well.
eas and It was a well­thought­out document, written
ften re­ not just by peoples’ representatives but also by
qualified lawyers with a firm grounding in legal
hat the
Dhammapada (the way of truth), the Some intellectuals and richer segments of our
Thirukkural’s Naduvu Nilamai (equipoise) and population have sought to portray politics as a
Advaitha (non­dualism). They all celebrated a profession that is “infra dig”. This has led to thugs
There have
centrist philosophy. 1. विधेयकाला सं मती देणे.
and opportunists emboldening themselves to
enter electoral politics across the country, leading
that have hurt
The rationale 2. विधेयकाला सं मती नाकारणे.
to rabid infections in the body politic. We need to
Why should we celebrate and join the Bharat Jodo beware of these infections and must imbibe the
3. विधेयक पुनर्विचारासाठी राज्यविधिमं डळाकडे पाठविणे.
Yatra? We have been witness to a time when
several measures have hurt our citizenry. These
message that if we do not impact politics, politics
will impact our lives mercilessly.
and damaged
include the hasty implementation of the Goods The idea and notion of Bharat as a country was
4. विधेयक राष्ट्रपतींच्या विचारार्थ राखून ठेवणे.
the idea of
Bharat as a and Services Tax, the demonetisation debacle stitched together by visionaries. I believe that it is
besides rising instances of caste and communal the time, now, to darn the gashes that this
country that discrimination. The citizens’ hard­earned right to country has suffered due to those who have

@abhijitrathod
player reasoning, theory, and a comparative sense of was stitched information has been diluted through devious sought to belittle and overturn that vision of our
n reiter­ how Constitutions evolved in democracies together by n[adV© Z & Competitive
illegalities. The judiciary has been sought to be Forum & -the
country. And A{^OrV
Bharat JodoamR> moS> is that darn (27)
Yatra
of the elsewhere as well. Now, mere politicians are visionaries stifled as the executive makes remarks that that will help us do so.
cricke­
 राज्यपालां ना विधेयकाच्या बाबतीत विधेयकाची प्रलं बितता टाळण्यासाठी सुचविलेले उपाय
1. पूर्ण नकाराधिकार.
1. न्या. बी. पी. जीवन रेड्डी समिती:
2. निलं बनात्मक नकाराधिकार (वित्त विधेयक वगळता) प्राप्त आहेत.
 सर्वोच्च न्यायालयाचे निवृत्त न्यायाधीश बी. पी. जीवन रेड्डी यां च्या
कलम 200 विषयी अडचणीचा मुद्दा अध्यक्षतेखालील समितीने “अनिश्चित काळासाठी राज्यपालां नी
 भारतीय सं विधानाच्या कलम 200 मध्ये राज्यपालां नी एखाद्या विधेयक राखून ठेवणे लोकशाहीच्या दृष्टीने अनुकूल नाही. त्याचबरोबर
विधेयकाला सं मती द्यायची अथवा नाही हे स्पष्ट केले आहे; मात्र यामध्ये सं विधानातील अस्पष्ट गोष्टींचा अर्थ लोककल्याणाच्या दृष्टीने लावून
कोणत्याही वेळे चे बं धन घालण्यात आलेले नाही. त्यामुळे अनेकदा त्यानुसार कार्य करणे अपेक्षित आहे” असे मत नोंदविले.
राज्यविधिमं डळां नी पारित केलेली विधेयके बराच काळ राज्यपालां च्या
2. राज्यघटनेच्या कामकाजाचे पुनरावलोकन करण्यासाठी
सं मतीविना प्रलं बित राहतात.
राष्ट्रीय आयोग :
प्रलं बित विधेयकां ची उदाहरणे:
 माजी प्रधानमं त्री अटलबिहारी वाजपेयी यां च्या काळात राज्यघटनेच्या
कामकाजाचे पुनरावलोकन करण्यासाठी नेमण्यात आलेल्या राष्ट्रीय
1. तामिळनाडू राज्यविधिमं डळाने मे 2022 मध्ये ऑनलाइन जुगार
आयोगाने विधेयकावर निर्णय घेण्यासाठी राज्यपालां ना मर्यादित वेळे चे
प्रतिबं ध आणि ऑनलाइन गेमचे नियमन विधेयक, 2022 पारित
बं धन (6 महिन्यां चा कालावधी) घालण्याची शिफारस केली.
केले आहे. परंतु अद्याप हे विधेयक राज्यपालां नी कोणताही
निर्णय न घेतल्याने प्रलं बित आहे. तामिळनाडू विधिमं डळाची 3. सरकारिया आयोग :
जवळपास 20 विधेयके राज्यपालां नी कोणताही निर्णय न
 केंद्र-राज्य सं बं धां च्या बाबतीत नेमण्यात आलेल्या सरकारिया
घेतल्यामुळे प्रलं बित आहेत.
आयोगाने पुढील शिफारशी केल्या-
2. केरळ राज्यविधिमं डळाचे लोकायुक्त (सुधारणा) विधेयक, 2022
1. विद्यमान कार्यपद्धतीत सुधारणा करून विधेयकाला मं जुरी
राज्यपालां नी निर्णय न दिल्याने प्रलं बित आहे.
देण्यातील राज्यपालां च्या बाजूने होणार विलं ब टाळता येईल.
कलम 200 विषयी सं वैधानिक आराखडा 2. विधेयकाचा मसुदा तयार करण्याच्या टप्प्यावरच राज्यपालां शी
 सं विधानसभेत कलम 200 वर चर्चा करताना सभेचे सदस्य प्रा. शिब्बन पूर्व सल्लामसलत करणे आणि विधेयकासं बं धी निकालासाठी
लाल सक्सेना यां नी राज्यविधिमं डळाच्या विधेयकां वर राज्यपालां नी वेळ-मर्यादा निर्धारित करणे उपयुक्त ठरेल.
किती कालावधीत निर्णय घ्यावा हे नमूद न केल्याविषयी आपले मत 4. सरकारिया आयोगासमोर विविध राज्य विधिमं डळाचे मत :
मां डले.
 राज्यपालां नी केंद्रसरकारला अनुकूल राहून राज्यसरकारच्या कारभारात
 पुरुषोत्तम नं बद
ु ीरी विरुद्ध केरळ राज्य सरकार, 1962 खटल्यात सर्वोच्च
हस्तक्षेप करण्याऐवजी राज्य विधिमं डळां नी घाईघाईने पारित केलेली
न्यायालयाच्या घटनापीठाने “सं विधानानुसार एखाद्या विधेयकावर
विधेयके तपासून सुदृढ लोकशाहीसाठी एक सुरक्षा कवच म्हणून कार्य
किती कालावधीत निर्णय घ्यावा याचे राज्यपालां वर कोणतेही बं धन
करणे अपेक्षित आहे.
नाही” असे निरीक्षण नोंदविले.
 मात्र राज्यपालां नी राज्यविधिमं डळाच्या सल्ल्यानुसार त्यावर निर्णय थोडक्यात
घेणे अपेक्षित असून विधेयक प्रलं बित ठेवणे सं वैधानिकदृष्ट्या चुकीचे  प्रशासकीय क्षेत्रात विधेयकां ना मं जुरी देण्यास अवास्तव विलं ब
असल्याचा निर्वाळा सर्वोच्च न्यायालयाने दिला. केल्यामुळे कायद्याच्या नियमां चे उल्लं घन होते.
कलम 201  त्यामुळे राज्यपालां नी कोणत्याही विधेयकाबाबतीत “निश्चित वेळे त”
निर्णय घेणे अपेक्षित आहे. “निश्चित वेळ” याचा अर्थ विधेयकावर
 कलम 201 नुसार राज्यपाल एखादे विधेयक राष्ट्रपतींच्या विचारासाठी
सारासार विचार करून योग्य तो निर्णय घेण्यासाठी लागणार वेळ होय.
राखून ठेवू शकतात.
 कीशम मेघचं द्र सिंग विरुद्ध मणिपूर विधानसभा अध्यक्ष, 2020 या
 मात्र राष्ट्रपतींनी अशा विधेयकावर किती कालावधीत निर्णय घ्यावा
खटल्यात सर्वोच्च न्यायालयाने पक्षां तरबं दी कायद्यां तर्गत विधानसभा
याचे कोणतेही बं धन नाही.
अध्यक्षां नी निश्चित वेळे त विधिमं डळ सदस्यां च्या अपात्रतेविषयी निर्णय
 तथापि; राष्ट्रपतींनी विधेयक पुनर्विचारासाठी राज्यविधिमं डळाकडे परत
घेण्याचे आदेश दे ताना 3 महिन्यां च्या कालावधीचे बं धन घातले.
पाठविल्यास राज्यविधिमं डळाला त्यावर 6 महिन्यां च्या कालावधीत
निर्णय घेणे बं धनकारक आहे.
 राज्यपालां नी विधेयक राष्ट्रपतींच्या विचारासाठी राखून ठेवल्याचे
उदाहरण :

तामिळनाडू विधानसभेने पारित केलेले राष्ट्रीय पात्रता प्रवेश

परीक्षा (NEET) - सूट विधेयक

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 वेस्टमिन्स्टर सं सदीय लोकशाहीनुसार राष्ट्रपती अथवा राज्यपाल हे 
नामधारी प्रमुख आहेत. वास्तविक सत्ता प्रधानमं त्री आणि मं त्रिमं डळाच्या
हातात असते. अशा वेळी राज्यपालां नी केवळ लोकनियुक्त
राज्यसरकार सं विधानाचे पालन करून राज्यकारभार करते आहे याची 
खात्री करणे अपेक्षित आहे.
 सं विधानात विधेयकावर निर्णय घेण्यासाठीच कालावधी नमूद केलेला 
नाही याचा अर्थ राज्यपालां नी एखादे विधेयक अनिश्चित काळासाठी
प्रलं बित ठेवणे असा होत नाही.
लोकशाहीला सुदृढ करणे, लोककल्याणकारी राज्याची सं कल्पना
सत्यात उतरविण्याच्या दृष्टीने सं विधानाचा योग्य तो अर्थ लावून
राज्यपालां नी कृती करणे आवश्यक आहे.
सं विधानातील एखाद्या विषयाची अस्पष्टतेमळ
ु े कार्यकारी मं डळ निष्क्रिय
होणार नाही याची काळ जी घेणे गरजेचे आहे.
याचविषयाला अनुसरून बोलताना न्या. व्ही. आर. कृष्ण अय्यर
यां नी शमशेर सिंग आणि इतर विरुद्ध पं जाब राज्यसरकार खटल्यात
“सं विधान निर्माते पुढील काळात घडणाऱ्या राजकीय गैरवर्तनाचा
अं दाज घेणारे राजकीय भविष्यकार नव्हते” असे स्पष्ट केले.

सराव प्रश्न :

1. सर्वोच्च न्यायालयाचा निकाल (जुलै 2018) दिल्लीचे उपराज्यपाल आणि लोकनियुक्त राज्यसरकार यां च्यातील राजकीय
विवाद सोडवू शकेल का? परीक्षण करा. (UPSC मुख्य परीक्षा 2018)
2. राज्यपालां च्या कायदे विषयक अधिकारां च्या वापरासाठी आवश्यक अटींवर स्पष्ट करून राज्यपालां नी अध्यादेश
विधिमं डळासमोर न ठेवता पुन्हा जारी करण्याच्या कायदेशीरतेवर चर्चा करा. (UPSC मुख्य परीक्षा 2022)

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