vikram dmin law project

8/17/2019 Vikram Dmin Law Project

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LEGISLATIVE CONTROLOF DELEGATEDLEGISLATIONAdministrative Law Project

Submitted to-

Mrs. Priya Vijay TripathiAssistant Professor

Submitted By-

Rohit RaghuwanshiRoll No. 183

Semester th

!Se"tion A#

NATIONAL UNIVERSITY OF STUDY AND RESEARCH IN LAW,RANCHI


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INTRODUCTION-

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)n'ia is a great 'emo"rati" "ountry. emo"ra"y en'orses the rule of law where people,s

so%ereign will is pronoun"e' &y the Parliament through legislation. 1 The ena"tments &y the

Parliament 'ire"t the tas$s for the e*e"uti%e an' outline referen"e for the ju'i"iary. 6 Therefore(

the tra'itional &elief of the 'emo"rati" legislation appro%es legislation as an e*"lusi%e &usiness

of the Parliament. CSometimes these lawDma$ing powers are "onferre' upon the e*e"uti%e &y the

legislature they are 'elegate' legislati%e powers,. 3 elegate' legislation at times is measure' as

‘legislation without a legislature’ . )t is in'ee'( e*e"uti%e legislation( &ut not e*"lusi%e for &eing

'eta"he' from the legislatures of 'emo"rati" polity. This sort of e*e"uti%e lawDma$ing has &een

'eri%e' from the authority gi%en &y the parliaments or legislatures of representati%e

go%ernments. 2egislatures or parliaments herein 'elegates power to legislateE the en' pro'u"t is

'elegate' legislation. 9

elegate' legislation usually "reates more s"ope for the e*e"uti%e to &e more authoritati%e. The

"riti"s of 'elegate' legislation put emphasis on the pro"li%ity of the pra"ti"e of 'elegate'

legislation in allowing the e*e"uti%e Cto legislate un"he"$e' &y the normal "onstraints of

politi"ians( parliamentary majorities an' interest groups,. ewart( The #ew Despotism !2on'onH -arnest =enn 2imite'( reprinte'( 1B9


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e*e"uti%e &ypassing legislatures ha' &een the 'ominant feature of legislation in the 'emo"ra"ies

li$e the /( the SA an' ;ran"e.

)n 1B9 ( the =ritish Parliament an' the S ongress ena"te'( IThe Statutory )nstruments A"tJ 8

an' IThe ;e'eral A'ministrati%e Pro"e'ure A"tJB

. Sin"e then( un'er the a&o%e law( the pra"ti"esof e*e"uti%e legislation ha%e &een "he"$e' an' "ontrolle' &y the ommittee Systems of the

=ritish Parliament an' &y the S ongress. 0ur "ountry )n'ia( the largest 'emo"ra"y( has

intro'u"e' legislati%e measures to "he"$ 'elegate' legislation sin"e its ;irst !o'(o"ha .1? )n 1B 6(

while formulating reme'ial measures against the a&use of a'ministrati%e authority the N has

re"ognise' as C'elegate' legislation is an in'ispensa&le an' una%oi'a&le agen'a for the &ig

go%ernments of mo'ern 'ay,( howe%er( it shoul' &e 'one with ultimate legislati%e san"tion in the

form of final appro%al of 'etaile' legislation( annulment of "ertain laws in "ase of ne"essity( an'

pro%ision for annual reports &y the e*e"uti%e to the legislature on the appli"ation of 'elegate'

legislation,. 11 2ater( the system of legislati%e "ontrol on 'elegate' legislation has gaine' almost

uni%ersality in the 'emo"rati" worl'.

A""or'ing to the tra'itional theory( the fun"tion of the e*e"uti%e is to a'minister the law ena"te'

&y the legislature( an' in the i'eal state the legislati%e powers must &e e*er"ise' e*"lusi%ely &y

the legislature who is 'ire"tly responsi&le to the ele"torate. 16 Apart from the pure a'ministrati%e

/. . heare( !egislatures ( p. 9.

8 See( >ugh Molson( I elegate' 2egislationJ in P.M. =riers et al) ( Papers on Parliament: A Collection of(ymposium Papers !2on'onH >ansar' So"iety( 1B9B#( pp. B


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fun"tion e*e"uti%e also performs legislati%e an' the ju'i"ial fun"tions also. )n -nglan'(

theoreti"ally it is only parliament( whi"h "an ma$e laws. -%en in the nite' States of Ameri"a

where the 'o"trine of the 'elegate' legislation has not &een a""epte' in prin"ipal( in pra"ti"e the

legislature has entruste' legislati%e powers to the e*e"uti%e. A'ministrati%e legislation met with

a rapi' growth after orl' ar )) an' in )n'ia 'uring 1B 3 to 1B .

ANALYSIS OF DELE ATED LE ISLATION-

2egislation is either supreme or su&or'inate. The former is that whi"h pro"ee's from the

supreme or so%ereign power in the State( an' whi"h is therefore in"apa&le of &eing repeale'(

annulle' or "ontrolle' &y any other legislati%e authority. Su&or'inate legislation is that whi"h

pro"ee's from any authority other than the so%ereign power( an' is( therefore( 'epen'ent for its

"ontinue' e*isten"e an' %ali'ity on some superior or supreme authority. The i'ea is to

supplement A"ts of Supreme 2egislati%e =o'y &y pres"ri&ing 'etaile' rules re+uire' for their

operation. 13

hen a legislati%e &o'y passes an A"t( it has e*er"ise' its legislati%e fun"tion. The essentials of

su"h fun"tion are the 'etermination of the legislati%e poli"y an' its formulation as a rule of

"on'u"t. These essentials are the "hara"teristi"s of a 2egislature itself. After a 2aw is ma'e &y

the 2egislature( it is "lear that e%ery 'etail for wor$ing it out an' for "arrying the ena"tment into

operation an' effe"t( may &e 'one &y the 2egislature or may &e left to another su&or'inate

agen"y or to some e*e"uti%e offi"er. 19 hile this is sometimes loosely 'es"ri&e' as a C'elegation,

of legislati%e power( in essen"e( it is 'ifferent from 'elegation of legislati%e power whi"h means

a 'etermination of the legislati%e poli"y an' formulation of the same as a rule of

"on'u"t. 1


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legislati%e power,,( ;aKl Ali( F. in Delhi !aws Act "ase 1 o&ser%e'H

./the e0pressions .delegated legislation1 and .delegating legislative power1 are

sometimes used in a loose sense+ and sometimes in a strict sense) These e0pressions

have "een used in the loose sense or popular sense in the various treatises or reports

dealing with the so called delegated legislation))) There can "e no dou"t that if the

!egislature completely a"dicates its functions and sets up a parallel !egislature

transferring all its power to it that would undou"tedly "e a real instance of

delegation of its power) -n other words+ there will "e delegation in the strict sense if

legislative power with all its attri"utes is transferred to another authority )1

)n a mo'ern welfare State( go%ernmental a"ti%ity has per%a'e' almost e%ery fiel' of humanen'ea%our( thus( ne"essitating ena"tment of multifarious laws to regulate this e%erDwi'ening

a"ti%ity. The 2egislature 'oes not ha%e enough time to 'eli&erate upon( 'is"uss an' appro%e all

the regulatory measures .1 Moreo%er( lawDma$ing has now &e"ome a "ompli"ate' an' te"hni"al

matter( an' law has to flawless in te"hni"al 'etails.

)n the nature of things( what the 2egislature 'oes( an' "an 'o( is to lay 'own the poli"y an'

purpose of any legislation in han'( lea%ing it to the -*e"uti%e to frame( in "onformity with those

prin"iples( formal an' pro"e'ural 'etails of that measure in the form of Cor'ers,. 18-mphasiKing

the ne"essity of su&or'inate legislation( the Supreme ourt in Gwalior ayon &ills &fg)

2Wvg)3 Co) !td) %. Asstt) Commissioner of (ales Ta0 45o&ser%e'H

1 1B


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.&ost of the modern socio%economic legislations passed "y the !egislature lay

down the guiding principles and the legislative policy) The !egislatures "ecause

of limitation imposed upon "y the time factor hardly go into matters of detail)

Provision is+ therefore+ made for delegated legislation to o"tain fle0i"ility+

elasticity+ e0pedition and opportunity for e0perimentation) The practice of

empowering the e0ecutive to ma'e su"ordinate legislation within a prescri"ed

sphere has evolved out of practical necessity and pragmatic needs of modern

welfare (tate .J

This power of 'elegation is a "onstituent element of the legislati%e power as a whole 6? . So long

as the 2egislature in'i"ates in the operati%e pro%isions of the statute the poli"y an' purpose of

the ena"tment( the mere fa"t that the legislation is s$eletal or the fa"t that a 'is"retion is left tothose entruste' with a'ministering the law( is no &asis for a "ontention that there has &een

e*"essi%e 'elegation of legislati%e power( if the power or 'is"retion has &een "onferre' in a

manner whi"h is legal an' "onstitutional. 61

0n the &asis of ju'i"ial pronoun"ements( it may &e ta$en as an esta&lishe' law now in )n'ia( that

the 2egislature is not "ompetent to 'elegate to the e*e"uti%e or any other &o'y its essential

legislati%e fun"tion( namely( the 'etermination of the legislati%e poli"y an' its formulation( as a

rule of "on'u"t. 66 =ut it has &een "on"e'e' that the 2egislature "an ta$e the assistan"e of other

&o'ies in su&si'iary matters an' that the "ases in whi"h su"h assistan"e "an &e ta$en woul' fall

&roa'ly into two types of legislations $nown as "on'itional legislation an' an"illary or

6? 6asanlal &agan"hai (an7anwala and Pratap (pinning and &anufacturing Co) !td) v) the (tate of 8om"ay+A.).R. 1B 1 S. . 9E &9s) Tata -ron and (teel Co) !td) v) Wor'men of &9s) Tata -ron and (teel Co) !td)+ A.l.R. 1B 6S. . 1B1 .

61 *yoti Parshad v) nion Territory of Delhi+ A.).R. 1B 1 S. . 1 ?6.

66 Devi Das Gopal ,rishan v) (tate of Pun7a"+ A.).R. 1B S. . 18B< !1B?1#E &unicipal Corporation of Delhi v) 8irla Cotton (pinning and Weaving &ills+ Delhi+ A.).R. 1B 8 S. . 1636E &9s) Tata -ron and (teel Co) !td) v)Wor'men of &9s) Tata -ron and (teel Co) !td)+ A.).R. 1B 6 S. . 1B1 E Gwalior ayon &ills &fg) 2Wvg)3 Co) !td) v)

Assistant Commissioner of (ales Ta0+ A.).R. 1B 9S. . 1 ?( 1 D B.

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su&or'inate legislation. 63

As to the meaning of "on'itional legislation( it may &e &roa'ly 'es"ri&e' as legislation( the

operation of whi"h is "on'itional upon the 'e"ision of a spe"ifie' authority( as 'istinguishe'

from legislation whi"h is a&solute an' "omes into operation of its own for"e an' in'epen'ently

of the will of any other authority. )n this "onne"tion( it has &een o&ser%e'H

)n a "on'itional legislation( the law is full an' "omplete when it lea%es the legislati%e "ham&er(

&ut the operation of the law is ma'e 'epen'ent upon the fulfilment of a "on'ition( an' what is

'elegate' to an outsi'e &o'y is the authority to 'etermine( &y the e*er"ise of its own ju'gment(

whether or not the "on'ition has &een fulfille'. 69

As regar's su&or'inate or an"illary legislation( it refers to "ases in whi"h the 2egislature lays

'own the poli"y in more or less general terms an' "onfers on an e*traneous authority the power

to ma$e rules an' regulations to "arry out the legislati%e poli"y. )t is open to the 2egislature to

formulate the poli"y as &roa'ly an' with as little or as mu"h 'etails as it thin$s proper an' it may

'elegate the rest of its wor$ to a su&or'inate authority who will wor$ out the 'etails within the

framewor$ of that poli"y. 6< )n this regar'( Mu$herjea( F. in Delhi !aws Act "ase 6 o&ser%e'H

.Delegation of legislative authority could "e permissi"le "ut only as ancillary to+ or

in aid of the e0ercise of law%ma'ing powers "y the proper !egislature+ and not as a

means to "e used "y the latter to relieve itself of its own responsi"ility or essential

63A.).R. Commentaries on the Constitution of -ndia+ Vol. )V( 1B 3( art.61


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duties "y devolving the same on some other agent or machinery) A constitutional

power may "e held to imply a power of delegation of authority which is necessary to

effect its purpose< and to this e0tent delegation of a power may "e ta'en to "e

implicit in the e0ercise of that power)1

The prin"iple enun"iate' a&o%e has &een stresse' &y the Supreme ourt in a num&er of other

"ases 'e"i'e' after the Delhi !aws Act "ase. )n re"ent years an in"reasing use of the te"hni+ue of

su&D'elegation has &een resorte' to in )n'ia. Su&D'elegation ta$es pla"e when the ruleDma$ing

authority 'elegates either to itself or to some other su&or'inate agen"y a further power to issue

rules or 'ire"tions or other instruments of a legislati%e "hara"ter .6

REASONS BEHIND DELE ATED LE ISLATION-

The importan"e of 'elegate' legislation is well re"ogniKe'. =ut the opposition to it is also huge

&ut it is &a"$e' &y en'less nee'. Though the nee' or reasons &ehin' 'elegate' legislation "annot

&e "ounte' &ut the main reasons "an &e pointe' out. Some of them are as follows

• Due to Le i(.$tu#e(- L$+1 o/ time, .e(( 1'o*.ed e o/ (ub%e+t m$tte# $'d )o.ume o/

*o#1 *it2 .e i(.$tu#e(- legislature is &usy in 'ealing with en'less su&je"t matters so it is

not possi&le for them to shape legislati%e 'etails of e%ery legislation. As they are

te"hni"al in nature an' a'ministration e*pertise is re+uire' to 'eal with them. ;urther 'ue

to in"reasing "omple*ity in nature of a"ti%ities performe' &y go%ernment( legislation is

o%er&ur'ene' with poli"y ma$ing. )n or'er to re'u"e the &ur'en it has &een suggeste'

that legislature "an use the te"hni+ue of 'elegate legislation to re'u"e &ur'en on its

shoul'ers.

• Te+2'i+$. "#ob.em(- E+o'omi+ $'d E')i#o'me't$. "#ob.em(-

The "hanging glo&al e"onomi" en%ironment has to &e $ept in min' in the era of

glo&aliKation( so that international &usiness "an &enefit the interests of "ountry. ;or this it

has to ma$e ne"essary an' "ontinuous "hanges to rules an' regulations so that they "an

6 )n'ian 2aw )nstituteH Delegated !egislation in -ndia+ 1B 9( p. 31

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mat"h the glo&al stan'ar's. ;urther it is well re"ognise' that sta&le politi"al e"onomi"

an' "ultural en%ironment 'o not re+uire ra'i"al "hanges in rules an' regulations. 0n the

"ontrary( unsta&le "on'itions 'eman' imme'iate an' rapi' "hanges. This "an &e 'one

only through the pro"ess of 'elegate' legislation. ;urther( so"ioDe"onomi" teams &eing

e*perimental in )nitial stages an' pra"ti"al 'iffi"ulties at stage of implementation "annot

&e foreseen.

• I'te#'$tio'$. Commu'ity- The 'elegate' legislation is an effe"ti%e instrument to &ring

a&out "hanges in 'omesti" rules an' regulations in a""or'an"e with "hanges that are

ta$ing pla"e at glo&al le%el. ;or e*.( if a "ountry signs a &ilateral or a multilateral treaty(

the pro%isions of treaty shoul' &e in"orporate' in 'omesti" laws. They 'o not re+uire

legislati%e appro%al &e"ause legislature alrea'y passe' those treaties at poli"y le%el.

CONTROL OVER DELE ATED LE ISLATION-

REASONS BEHIND THE CONTROL

The legislati%e wing of go%ernment is ele"te' &y masses to ma$e laws( &ut as 'elegate'

legislation is not ma'e &y Parliament( therefore the 'elegate' legislations are re+uire' to &e

"ontrolle'. 68 This is the major pro&lem &ehin' the 'elegate' legislation an' therefore "ontrol

o%er it is ne"essary. This means that the pu&li" is not a&le to ele"t those ma$ing legislation( as

they are with Parliament( an' thus those ma$ing 'elegate' legislation are not a""ounta&le to the

people( so 'elegate' legislation "an seem un'emo"rati" an' a parti"ular pro&lem if it is use' for

more important poli"ies( an' not simply a'ministrati%e rules.

Apart from this there are many other pro&lems li$e su&D'elegation is another pro&lem with

'elegate' legislation( as the "reation of the legislation is 'elegate' further. ;or e*ample

go%ernment minister is originally gi%en the power to ma$e 'elegate' legislation &y the ena&ling

a"t( further 'elegate it to "i%il ser%ants within the 'epartment( su"h 'elegation is re+uire' to &e

68S"h tKe( Ro&ert ( Delegated’!egislation in the 2new3 $uropean nion: A Constitutional Analysis ( The Mo'ern 2aw Re%iew( !6?11#.

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un'er "he"$. 6B This means power is ta$en e%en further from those ele"te' an' "ontinues to ma$e

'elegate' legislation appear un'emo"rati" an' in nee' of stri"t "ontrols.

;urther the ne*t point in +ueue is that 'elegate' legislation is generally ma'e pri%ately( rather

than &eing 'e&ate' as parliamentary legislation is( an' thus( although the ena&ling a"t may

re+uire some pu&li" "onsultation( 'elegate' legislation "oul' &e seen as mu"h less open an'

pu&li"ise' than statutes. 3?

so we "an ma$e out that the 'elegate' legislations are not un'er any "he"$ an' therefore stri"$

"ontrol o%er them is ne"essary.

TY"ES OF CONTROL OVER THE DELE ATED LE ISLATION 34

1. Procedural Control

Parliamentary "ontrol o%er a'ministrati%e rule is a'mitte'ly wea$ &e"ause the legislators are

sometimes inno"ent of legal s$ills. A "onstant sear"h therefore is on for an alternati%e

me"hanism whi"h &esi'es pro%i'ing an effe"ti%e %igil o%er a'ministrati%e rule ma$ing "an

guarantee effe"ti%e people parti"ipation for netter so"ial "ommuni"ation( a""eptan"e an'effe"ti%ely of the rules. Pro"e'ural "ontrol me"hanism has the potential to meet the a&o%e note'

re+uirements for allowing spe"ifi" au'it of rules &y those for whose "onsumption they are ma'e.

Pro"e'ural "ontrol me"hanism operates in four "omponentsH a# rafting Antenatal Pu&li"ity "#

onsultation '# Postnatal pu&li"ity.

2. Judicial Control

6B)&i'.

3? )&i'.

31 ).P. Massey( Administrative !aw ( 8th-'n.( !-astern =oo$ ompany( 2u"$now( 6?16#( p 163.

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)n )n'ia the ju'i"ial re%iew of a'ministrati%e rule ma$ing is su&je"t to the normal rules

go%erning the re%iew of a'ministration a"tion. This ju'i"ial re%iew of a'ministrati%e rule ma$ing

"annot &e fore"lose' in any manner &y the ena&ling a"t. )n (tate of ,erala %. ,)&)C . A"dullah =

Co)>? The >on,&le Ape" ourt of )n'ia hel' that su"h a phrase as Ishall not &e "alle' in +uestion

in any "ourtJ in the ena&ling a"t is not %ali'. )n the same manner in General @fficer

Commanding%in%Chief v) (u"ash Chandra adav+ >> the >on,&le Supreme ourt of )n'ia hel' that

an A"t pro%i'ing that rules ma'e there un'er on pu&li"ation in offi"ial gaKette woul' &e Cas if

ena"te', in the A"t( "annot ta$e away ju'i"ial re%iew. 4roun's of in%ali'ity may arise on the

following "ountsHa# That the -na&ling A"t is ltraD%ires the onstitution# The A'ministration

2egislation is ultraD%ires the onstitution# That the A'ministrati%e 2egislation is ultraD%ires the

-na&ling A"t.

3. Parliamentary Control

-%ery 'elegate is su&je"t to the authority an' "ontrol of the prin"ipal an' the e*er"ise of

'elegate' power "an always &e 'ire"te'( "orre"te' or "an"elle' &y the prin"ipal. 39 >en"e

parliament "ontrol o%er 'elegate' legislation shoul' &e li%ing "ontinuity as a "onstitutional

ne"essity. The fa"t is that 'ue to the &roa' 'elegation of legislati%e powers an' the generaliKe'

stan'ar' "ontrol also &eing &roa'( the ju'i"ial "ontrol has shrun$( raising the 'esira&ility an' the

ne"essity of parliamentary "ontrol.

4. Direct General Control 35

36 1B < A)R 1


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;ollowing are the situations of the 'ire"t general "ontrol.

a. Through 'e&ate on the a"t whi"h "ontains 'elegation. Mem&ers may 'is"uss anything

a&out the 'elegation in"lu'ing ne"essity( e*tent( type of 'elegation an' authority to whom

power is 'elegate'.

&. Through +uestion an' noti"es. Any mem&er may as$ +uestions on any aspe"t of

'elegation of legislati%e power an' if 'issatisfie' "an gi%e noti"e for 'is"ussion un'er

Rule ouse

rules an' the regulations frame' &y the a'ministrati%e authority.

L$yi' o/ O#de#( o' t2e T$b.e

3 httpH parliamentofin'ia.ni".in ls rules rules.html.

3 Supra Note 1 ( p. 16?.

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here any or'er frame' in pursuan"e of the onstitution or of the legislati%e fun"tions 'elegate'

&y an A"t of Parliament to su&or'inate authority is re+uire' to &e lai' on the Ta&le for a perio'

spe"ifie' in this &ehalf in the onstitution or the rele%ant statute( this spe"ifie' perio' has to &e

"omplete' &efore the 2o$ Sa&ha is a'journe' sine die an' later prorogue'( unless otherwise

pro%i'e' in the onstitution or the rele%ant statute. )f the spe"ifie' perio' is not so "omplete'(

the or'er is re+uire' to &e reDlai' in the su""ee'ing session or sessions until the sai' perio' is

"omplete' in one session. 38

All notifi"ations "ontaining these rules( regulations( et". are re+uire' to &e lai' on the Ta&le

within a perio' of fifteen 'ays after their pu&li"ation in the 4aKette( if the 2o$ Sa&ha is in

session. )f it is not in session( they are to &e lai' on the Ta&le as soon as possi&le( &ut in any "ase

within fifteen 'ays of the "ommen"ement of the ne*t session .3B

A notifi"ation on"e issue' un'er an A"t whi"h "ontains pro%ision for its &eing lai' on the Ta&le

has to &e so lai'. )t "annot &e withhel' merely on the groun' that it is to &e amen'e' an' will &e

lai' on the Ta&le in the amen'e' form. )n su"h "ases( &oth "opies ha%e to &e lai'. 9? hene%er

there is un'ue 'elay in laying a notifi"ation on the Ta&le( the Minister "on"erne' is re+uire' to

lay on the Ta&le along with the notifi"ation( a statement gi%ing reasons for su"h 'elay. >owe%er(

in e*"eptional "ir"umstan"es( su"h statement may &e lai' afterwar's. 91

38Rule 639.;or 'etails re.reDlaying of rules( et". see hapter 777)VOPapers 2ai' on the Ta&le an' usto'y ofPapers. The ommittee on Su&or'inate 2egislation in their Se"on' Report !ouseof Parliament while it is in session for a total perio' of 3? 'ays whi"h may &e "omprise' in one session or in two ormore su""essi%e sessions( an' if &efore the e*piry of the session imme'iately following the session or the su""essi%esessions aforesai'( &oth >ouses agree in ma$ing any mo'ifi"ation to the rule or &oth >ouses agree that the rule

shoul' not &e ma'e( the rule shall thereafter ha%e effe"t only in su"h mo'ifie' form or &e of no effe"t( as the "asemay &eE howe%er( any su"h mo'ifi"ation or annulment shall &e without preju'i"e to the %ali'ity of anything pre%iously 'one un'er that rule.

3B6R ! S2D62S#( para 6.

9? !)() De")+ 1 D11D1B


16/24

Normally or'ers are lai' on the Ta&le only after they ha%e &een notifie' in the 4aKette. An

e*"eption has( howe%er( &een ma'e in a "ase where there was no pro%ision in the onstitution

a&out or'ers &eing notifie' in the 4aKette an' the groun' of Cse"urity, was plea'e' &y the

Minister as an argument for not pu&lishing notifi"ation. 96

!odi/i+$tio' o/ O#de#(

After an or'er is lai' on the Ta&le( any mem&er may gi%e noti"e of his intention to mo%e a

motion or motions for mo'ifi"ation of that or'er. IMo'ifi"ationJ use' in this an' su&se+uent

paragraphs of this hapter in"lu'es Iamen'mentJ of the or'ers. 93

-%en if the statute un'er whi"h "ertain rules or regulations ha%e &een frame' 'oes not pro%i'e

for their laying on the Ta&le or for their mo'ifi"ation &y Parliament( the 2o$ Sa&ha has the

inherent power to re"ommen' mo'ifi"ation to su"h statutory rules after they are lai' on the Ta&le

&y 4o%ernment whether in "omplian"e with a 'eman' from the >ouse or in reply to a +uestion

or suomotu an' a mem&er is entitle' to gi%e noti"e of amen'ments for their mo'ifi"ation. 99

910n 1? May 1B 3( when the )ron an' Steel ! ontrol# Amen'ment 0r'er( 1B 3( pu&lishe' in 4aKette( 'ate' 16April 1B 3( was lai' on the Ta&le( a mem&er raise' a point of or'er regar'ing 'elay in laying the or'er on the Ta&lean' 'eman'e' that the Minister shoul' e*plain reasons for 'elay. The eputy Spea$er o&ser%e' that asre"ommen'e' &y the ommittee on Su&or'inate 2egislation( all statutory rules an' or'ers shoul' &e lai' on theTa&le within 1< 'ays of their pu&li"ation an' as there was 'elay in the present "ase( a statement regar'ing 'elayshoul' &e lai' as soon as possi&le. The statement e*plaining reasons for 'elay was a""or'ingly lai' on the Ta&le on11 May 1B 3. The -*amination of Masters an' Mates !Amen'ment# Rules( 1B 3( pu&lishe' in the 4aKette( 'ate' 1Mar"h 1B 3( were lai' on the Ta&le on 19 May 1B 3. A statement e*plaining the reasons for 'elay was lai' on theTa&le on 1 May 1B 3.

96 ;or e*ample( on 6< August 1B ?( the a&inet Se"retariat forwar'e' "opies of the PS !-*emption fromonsultation# Supply Regulations( 1B ? frame' un'er Proviso to art. 36?!3# of the onstitution for &eing lai' on the

Ta&le un'er art. 36?!


17/24

Noti"es of motions are gi%en in writing an'( after &eing a'mitte' &y the Spea$er( are pu&lishe'

in the 8ulletin) B A "opy of the a'mitte' motion is sent to the Minister "on"erne' an' the

Minister of Parliamentary Affairs an' the item is in"lu'e' in the !ist of 8usiness for a suita&le

'ate.

)n "ase se%eral noti"es of motions are gi%en( te*ts of a'mitte' motions may &e "ir"ulate' to

mem&ers in one or more lists of motions in the same way as lists of amen'ments to a =ill an' the

te*ts of these motions may not &e pu&lishe' in the 8ulletin an' in"lu'e' in the !ist of 8usiness) B

here the onstitution or the parent A"t pro%i'es that the or'ers frame' thereun'er are to &e lai'

on the Ta&le for a spe"ifie' perio' an' will &e su&je"t to su"h mo'ifi"ation as Parliament may

ma$e( 9 the motion in the 2o$ Sa&ha "onsists of two parts( the first part &eing a resolution of the

>ouse an' the se"on' part a re"ommen'ation to the Rajya Sa&ha to "on"ur in the resolution.

here( howe%er( the onstitution or the parent A"t simply pro%i'es that the or'ers frame' there

un'er are to &e lai' on the Ta&le( that is( it 'oes not pro%i'e for their mo'ifi"ation( the motion is

a'mitte' in the form of a re"ommen'ation to the 4o%ernment.

99 Noti"e of amen'ment to the regulations lai' on the Ta&le un'er art. 36?!


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ALLOT!ENT OF TI!E FOR DISCUSSION AND !OVIN OF !OTIONS

here a statute pro%i'es that the or'ers shall &e su&je"t to mo'ifi"ation &y Parliament(

4o%ernment is &oun' to fin' time for 'is"ussion of the motion( if noti"e of a motion for their

mo'ifi"ation is a'mitte'. here there is no su"h pro%ision in the statute an' noti"e of a motion

for mo'ifi"ation of the or'ers is a'mitte'( 4o%ernment is not &oun' to fin' time for 'is"ussion

of the motion &ut time is generally ma'e a%aila&le.

At the appropriate time on &eing "alle' &y the hair( the mem&er "on"erne' mo%es the motion

stan'ing in his name( for mo'ifi"ation of the or'ers. The mo%er of the motion has the right of

reply. hen there is a pro%ision in an A"t that the rules ma'e thereun'er are not to "ome into

for"e until they ha%e &een appro%e'( with or without mo'ifi"ation &y the 2o$ Sa&ha( 98 it is the

responsi&ility of 4o%ernment( to mo%e a resolution for the appro%al of su"h rules( soon after

these rules are lai' on the Ta&le. here an A"t pro%i'es that 'raft rules or regulations frame' &y

the 4o%ernment woul' &e su&je"t to mo'ifi"ation &y the 2o$ Sa&ha or &oth >ouses of

Parliament within a spe"ifie' perio'( 9B the rules or the regulations "an &e promulgate' only after

the stipulate' perio'( either as frame' or with su"h mo'ifi"ations as are agree' to &y the 2o$

Sa&ha or &oth >ouses of Parliament( as the "ase may &e.

)n one instan"e( motions for mo'ifi"ation of "ertain or'ers !whi"h un'er the pro%isions of the

onstitution were su&je"t to mo'ifi"ation &y &oth >ouses of Parliament 'uring the session in

whi"h they ha' &een lai' on the Ta&le# were( 'ue to want of time( allowe' to &e 'is"usse' in the

following session( an' one of the motions as amen'e' was a'opte' in the form of a resolution of

the >ouse.


19/24

A "om&ine' 'e&ate "an &e hel' on two motions for amen'ment of two 'ifferent or'ers( pro%i'e'

the motions 'eal with allie' matter. Motions for mo'ifi"ation of or'ers( whi"h are mo%e' in the

>ouse &ut 'is"ussion thereon is not "on"lu'e'( lapse upon 'issolution of the >ouse.

Transmission of mendments s dopted !y T"e #o$ Sa%"a& To T"e 'a(ya Sa%"a nd T"e )inister Concerned

)n "ase an or'er is su&je"t to mo'ifi"ation &y Parliament an' any amen'ment is a'opte' &y the

2o$ Sa&ha( it is transmitte' to the Rajya Sa&ha for its "on"urren"e an' on re"eipt of a message

from the Rajya Sa&ha agreeing to the amen'ment( it is forwar'e' &y the Se"retariat to the

Minister "on"erne'. ouses( the amen'e'

or'er has to &e lai' on the Ta&le.


20/24

Parliament( the amen'ment a'opte' &y the 2o$ Sa&ha is forwar'e' 'ire"t to the Minister

"on"erne'.

*. +ndirect Control 55

This "ontrol is e*er"ise' &y Parliament Through its "ommittees. )n 1B


21/24

8. hether for any reason( it re+uires any further elu"i'ation.

This "ommittee has( &etween 1B


22/24

CONCLUSION-

After ela&orate' 'is"ussion on the su&je"t matter we "an "on"lu'e it &y a""epting its ne"essity.

elegate' legislation is ne"essary for many reasonsE allowing faster( more spe"ifi" or te"hni"al

legislation to &e "reate'( where it woul' not &e possi&le with insuffi"ient parliamentary time an'

rele%ant $nowle'ge. >owe%er( 'elegate' legislation nee's to &e "ontrolle' as it is "reate' more

pri%ately than statutes( an' with the ris$ of su&D'elegation an' a&use of power( &y nonDele"te'

&o'ies or in'i%i'uals. The present "ontrols o%er 'elegate' legislation( although reasona&ly

effe"ti%e ha%e their 'isa'%antages( most &eing limite' in their "ontrolsE ena&ling a"ts "an allow

%ery wi'e powers( affirmati%e resolutions 'o not allow for amen'ments( negati%e resolutions 'o

not always allow for opposition or unease to &e e*presse'( the S"rutiny ommitteeQs reports are

not always "onsi'ere'( an' the "ourts "an only loo$ into 'elegate' legislation if an affe"te'

in'i%i'ual "hallenges it. As a result( although "ontrols are reasona&ly effe"ti%e( 'elegate'

legislation "oul' &e "onsi'ere' ina'e+uately "ontrolle'( with no real parliamentary inspe"tion(

e*"ept for the small num&er of statutory instruments su&je"t to positi%e resolution. Sin"e

'elegate' legislation is in many ways un'emo"rati" an' less pu&li" than statutes( it nee's tighter

"ontrols to pre%ent possi&le a&use of power.

Parliamentary "ontrol is( howe%er( not effe"ti%e. a'e saysH I0ne of the features of the

6? th"entury has &een a shift of the "onstitutional "entre of gra%ity( away from the Parliament an'

towar's the e*e"uti%e. Mr. 2loy' 4eorge on"e sai'H CParliament has really no "ontrol o%er the

e*e"uti%eE it is a pure fi"tion,.J The a""usation against the >ouse of ommon at the present time

is that it allows 4o%ernment 'epartment to 'o something( without $nowing what is &eing 'one. <

< 2or' >emingfor' "ite' &y FoisH Delegated !egislation ( 1B86( 1p. 1


23/24

Prof. Ramsay Muir statesH I there is no "ountry in the northDwestern -urope in whi"h the "ontrol

e*er"ise' &y the parliament o%er the go%ernment o%er legislation( ta*ation an' a'ministration

is more sha'owy an' unreal than it is in =ritain( Parliament is no longer+ in any real sense+ the

sovereign power)1 E

BIBLIO RA"HY-

Boo1( $'d A#ti+.e(

@ ).P. Massey( A'ministrati%e 2aw( 8th-'n.( !-astern =oo$ ompany( 2u"$now( 6?16#@ M. P. Fain an' S. N. Fain( Prin"iples of A'ministrati%e 2aw( th-'n.(!2e*is Ne*is

=utterworths a'hwa( Nagpur( 6?11#@ M. P. Fain( Treatise on A'ministrati%e 2aw( 9th-'n.!2e*is Ne*is =utterworths

a'hwa( Nagpur( 1BB #@ Sir . a'e( A'ministrati%e 2aw( 8th-'n.( ! ni%ersal 2aw Pu&lishing o. P%t. 2t'.(

6???#@ Fohn Salmon'( Furispru'en"e( Bth -'n( !2on'on( Sweet an' Ma*well 2imite'( 1B3 #@ S. A. 'e Smith( onstitutional an' A'ministrati%e 2aw( 3r' -'n.( !New :or$H Penguin

=oo$s( 1B #@ Taggart( Mi"hael( ;rom Qparliamentary powersQ to pri%atiKationH The "he+uere'

history of 'elegate' legislation in the twentieth "entury( ni%ersity of Toronto 2aw

Fournal !6??


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