BY PRASHANT BHUSHAN
The framers of the Indian Constitution would not have imagined
that within 50 years of doing so the Indian judiciary would emerge as the most
powerful institution of the state. The Constitution established the high courts
and the Supreme Court as watchdog institutions, independent of the executive and
the legislature, not merely to dispense justice but also to ensure that the
executive and the legislature did not exceed the authority conferred upon them
by the Constitution. Thus the judiciary was given the powers to interpret the
laws and the Constitution as also to strike down executive action which violated
any law or the fundamental rights of citizens. It was also given the authority
to examine whether laws framed by Parliament conformed to the Constitution and
declare them void if they violated it.
By a creative interpretation of the provision authorising
Parliament to amend the Constitution, the Supreme Court in 1973 also acquired
the power to strike down even constitutional amendments which were held by the
court to violate the basic structure of the Constitution. Many laws and some
constitutional amendments have been struck down by the courts during this
period.
In the 1980s the Supreme Court evolved a new jurisdiction which
has come to be known as public interest litigation (PIL) and which involved a
liberal interpretation of the fundamental right to life and liberty guaranteed
by Article 21 to include the right to live with dignity and therefore to enjoy
the basic amenities of life such as food, water, shelter, basic education,
health care and even the right to a healthy environment. Simultaneously, the
court declared that it could and should direct the executive to provide these
amenities to citizens who were denied these.
Over the last 30 years this PIL jurisdiction has been used to
occasionally direct the provision of basic amenities like food, water, education
and shelter to the poor and marginalised sections of society. But increasingly
in the last 15 years, the jurisdiction has largely been used whimsically and
subjectively by judges ostensibly for protecting the environment. Thus the court
has ordered the shutting down of "polluting industries" in and around Delhi and
the Taj Mahal in Agra, the conversion of commercial vehicles in Delhi to natural
gas (CNG) fuel, the dismantling of all structures on the ridge running through
Delhi, the stoppage of any non-forest activity in forest areas, etc. It has also
ordered the demolition of the shanties of hundreds of thousands of slum dwellers
in Delhi and Mumbai. In Delhi, this was done on the ground that they were
polluting the river near which they lived.
While exercising the same PIL jurisdiction, they have also
ordered the removal of hundreds of thousands of vendors from the streets of
Delhi and Mumbai, ruling that streets were meant for traffic and not for
vendors. In short, using this PIL jurisdiction, the courts acquired and have
used the power to order anything that an individual judge considered to be in
the public interest. The recent actions of the court have clearly shown that by
and large the court has given precedence to ‘Environmental Protection’ if there
was a perceived conflict between that and the socio-economic rights of the poor.
But environmental protection came second when it came into conflict with the
interests of ‘Corporate Development’.
Through all this the superior courts in India have emerged as
perhaps the most powerful courts in the world, exercising virtually imperial and
unchecked powers. While executive action and even legislation could often be
struck down by the courts, the directions of the courts, sometimes issued
without even notice to the affected parties, were beyond question and had to be
obeyed by all executive officers on pain of contempt of court. Of course, often
these powers were wisely exercised to correct gross executive inaction.
While the court was acquiring these powers, by an even more
inventive (purposive) interpretation of the provision regarding appointment of
judges by the government, it also took over the power of appointment. Thus
judges of the high court and Supreme Court are now appointed by a collegium of
senior judges of the Supreme Court. The judiciary has thus become like a
self-perpetuating oligarchy. There is no system followed in the selection of
judges and there is no transparency in the system. In particular, no regard is
paid to examining the record or credentials of judges in their ideological
adherence to the constitutional ideals of a secular, socialist democratic
republic or their understanding of or sensitivity towards the common people of
the country who are poor, marginalised and unable to fight for their rights in
the courts.
Thus the courts in India enjoy virtually absolute and unchecked
power unrivalled by any court in the world. In these circumstances, it is
absolutely vital that judges of the superior judiciary be accountable for their
performance and their conduct – whether it is about corruption or disregard of
constitutional values and the rights of citizens.
Unfortunately, neither the Constitution nor any other law has
created any institution or system to examine the performance of judges or
complaints against them. The Constitution provides that high court and Supreme
Court judges cannot be removed except by impeachment. That process requires
signatures of 100 MPs of the Lok Sabha or 50 MPs of the Rajya Sabha for its
initiation. If a motion containing charges of serious misconduct, with the
requisite signatures, is submitted and admitted by the speaker of the Lok Sabha
or the chairperson of the Rajya Sabha, an inquiry committee of three judges is
constituted to hold a trial of the judge. Only if he or she is found guilty, the
motion is then placed before each House of Parliament where it has to be passed
by a two-thirds majority in each House.
Our experience has shown that it is practically impossible to
remove a judge through impeachment even if one is somehow able to get
documentary evidence of serious misconduct. This is because MPs and political
parties to which they belong are very reluctant to take on a sitting judge
because virtually all of them have pending cases in courts. The judges often
behave like a trade union and do not take kindly to brethren being accused of
misconduct. It is therefore virtually impossible to get an impeachment off the
ground unless the matter has become a major public scandal. Only in those cases
is it possible to get enough MPs to sign an impeachment motion.
The only impeachment of a judge to have gone far was that of
Justice V. Ramaswami in the early 1990s. After the motion was presented, a
judges’ inquiry committee found him guilty of several charges of misconduct when
the matter came up for a vote in Parliament. The ruling Congress party directed
all their MPs to abstain from voting. Thus though the motion was unanimously
passed in the Lok Sabha, it did not get the support of a majority of the total
membership of the House and therefore failed. The judge remained in office till
he retired but was not assigned any judicial work by the then chief justice.
Only last month we have seen a second motion, against a judge of the Calcutta
high court, signed and submitted to the chairperson of the Rajya Sabha.
Allegations and charges against a judge, even when supported by
documentary evidence, rarely get any coverage in the media because of the
widespread fear of contempt of court. The contempt law in India allows any judge
of the high court and Supreme Court to charge anyone with criminal contempt and
send him/her to jail on the ground that he/she has "scandalised the court or
lowered the authority of the court". What "scandalises" or "lowers" the
authority of a court is left entirely to the subjective view of each judge. In
the case of well-known writer Arundhati Roy, a bench of two judges of the
Supreme Court charged her with contempt and sent her to jail merely because she
criticised the court in an affidavit.
The facts were these: After the judgement of the Supreme Court
in the Narmada dam case in 2000, there was a public protest outside the Supreme
Court in which Medha Patkar, the leader of the anti-Narmada dam movement in
India, and Arundhati Roy participated. A couple of lawyers (probably acting at
the prompting of the court itself) filed a contempt petition against Patkar, Roy
and myself (I was the lawyer for the anti-dam movement), alleging that we had
raised abusive slogans against the court. The lawyers’ contempt application,
apart from being in grotesque language, also contained palpably absurd
allegations that Roy and Patkar (who can hardly be considered rowdies)
manhandled the burly lawyers.
Roy, in her reply to the court notice, said: "For the court to
have issued notice on such a ridiculous petition to three persons who have been
vocal in their criticism of the court shows a disquieting inclination on the
part of the court to muzzle dissent and stifle criticism." Though he discharged
the first notice, the same judge (Justice GB Pattanaik) who had issued the first
notice issued a second contempt notice, this time to Roy alone, for daring to
berate the court in this manner. They eventually held her guilty of contempt and
sent her to jail with Justice Pattanaik sitting as a judge in his own case.
Earlier, the Supreme Court had declared that a person charged
with "scandalising the court" will not be permitted to prove the truth of
his/her allegations against a judge. Though Parliament has recently amended the
Contempt of Courts Act to expressly allow truth as a defence, nothing has been
done to prevent judges against whom allegations are made from charging the
person with contempt and hauling him or her to jail. The criminal contempt
jurisdiction of the court and the cavalier manner in which it is exercised is
another example of the enormous and unchecked power of the superior courts in
India.
Our campaign for judicial accountability has long been demanding
that the courts’ power to punish for "scandalising and lowering the authority of
the court" must be taken away by legislation. Of course, this demand has been
stoutly resisted by the courts, which claim that deleting this provision would
greatly encourage baseless allegations and abuse of judges by disgruntled
litigants and would thereby erode public confidence in the courts. But then
there is the law of civil and criminal defamation to protect judges against
vilification. Moreover, public confidence in the courts as in any person or
institution is generated or eroded by the actions of the courts and not by any
baseless allegations by disgruntled litigants. However, with such fierce
opposition by the courts, the legislature has not had the courage to delete this
provision from the Contempt of Courts Act.
In 1991 the Supreme Court by another ingenious judgement
involving Justice K. Veeraswami (father-in-law of V. Ramaswami) – then chief
justice of the Madras high court who was caught with assets vastly
disproportionate to his income – laid down that no judge of a superior court
could be subjected to a criminal investigation without the written permission of
the chief justice of India. This judgement has been used to prevent the
investigation and prosecution of many judges against whom there was documentary
evidence of corruption, fraud, misappropriation, etc. This has also increased
the impunity of judges who have now got used to the feeling that they can get
away with any kind of misconduct, or even criminal conduct, without fear of any
criminal action or action for removal. Armed additionally with the power of
contempt, they also have little fear of public exposure.
In 2005 India got one of the most liberal and powerful Right to
Information (RTI) Acts in the world. It permits disclosure of internal notings
and correspondence of public officials, has few exemptions from disclosure,
creates an independent appellate body to decide disputes regarding refusal of
information. It also provides for penalties against arbitrary and mala fide
refusal to disclose information. It applies to all public authorities, including
the judiciary. One would have expected that the courts, which had held that even
in the absence of any RTI Act the fundamental right to free speech encompassed
that right anyway, would have welcomed the application of the right to the
courts. Unfortunately however, the court has fiercely resisted the disclosure of
all critical information relating to the courts. Several high courts have framed
rules, in violation of the RTI Act, that no administrative or financial
information would be given. The application fees for RTI applications in the
courts are sometimes 50 times that of other public authorities. The courts have
thus refused information about appointments of employees of the courts,
appointment and transfer of judges and complaints against judges. The Supreme
Court even refused to disclose whether the judges are declaring their assets in
accordance with the code of conduct that they themselves had framed.
All this makes for an alarming picture of lack of accountability
of the higher judiciary in India. You cannot in actuality take any disciplinary
or criminal action against misconduct or crimes committed by judges. If you
expose them publicly, you run the risk of contempt. And with the effective
blocking of the RTI Act in its application to the judiciary, judges remain
ensconced in their citadels, safe in the knowledge that no one can even peek
into their affairs. This lack of accountability coupled with the enormous
unchecked powers that the courts have acquired and are exercising make the
judiciary a very dangerous institution and indeed a serious threat to Indian
democracy. This lack of accountability has led to considerable corruption of the
higher judiciary which is evident from the recent spate of judicial scandals
that have erupted in India. A September 2008 report in The Times of India
on the corruption perception index shows that the judiciary is perceived to be
the second most corrupt institution in India after the police.
It is high time that this unhappy situation is corrected by
reforms in the law and amendments to the Constitution. We need to create
independent statutory and full-time bodies for the appointment of judges as well
as for the performance audit and disciplinary control over judges. These bodies
must be independent of the executive as well as the judiciary.
To this end we have made a number of suggestions:
Ø We have suggested a five-member judicial appointments
commission and a similar judicial complaints commission. One member each to
these commissions could be nominated by (1) The collegium of all judges of the
Supreme Court; (2) The collegium of all chief justices of the high courts; (3)
The cabinet; (4) A collegium of the leaders of the opposition in the two Houses
of Parliament, the Lok Sabha speaker and the chairperson of the Rajya Sabha; and
(5) A collegium of the chairperson, NHRC, the CAG, the CVC and the CEC. However,
once nominated, the members would have security of tenure and would not be under
the control of the appointing authorities.
Ø These bodies must function transparently and must devise clear
criteria and methodology for selecting judges and dealing with complaints
against them. They must have a small investigative machinery under their
administrative control through which they could get disputed and relevant
questions of fact investigated. Their decisions about appointments and removal
of judges should be final and not subject to executive, legislative or judicial
approval.
Ø The Veeraswami judgement must be judicially or legislatively
reversed and there should be no additional impediment in the criminal
investigation and prosecution of judges. That task could also be entrusted to
the investigative organisation under the judicial complaints commission.
Ø The provisions concerning "scandalising the court" or
"lowering the authority of the court" must be deleted from the definition of
criminal contempt of court and it must be made clear that an allegation, however
scurrilous, against a judge would amount to defamation but not contempt unless
it presents a clear and present danger to the administration of justice (the US
law).
Ø The high court rules under the RTI Act which conflict with the
RTI Act must be rescinded.
Unfortunately, neither the government nor the judiciary have
shown any seriousness in tackling the problem of judicial accountability or,
rather, the lack of it. Nor have they shown any political will to bring in other
much needed reforms to repair the virtually dysfunctional normal judicial
system, as a result of which hardly anyone is able to get justice through the
courts. The executive is happy with a failed, corrupt judiciary which will not
hold it to account and the judiciary is happy to enjoy vast powers without
accountability. The government has proposed a judicial council which will be an
in-house body of sitting judges to deal with complaints against judges. The
judges also oppose any independent institution and want only an in-house body of
sitting judges. Experience however shows that such in-house bodies and
self-regulation rarely works, whether in the judiciary or the bar or within the
medical community.
Judicial reforms in India are likely to take place only if there
is a strong people’s movement and campaign which puts democratic pressure on the
government and shames the judiciary. Unfortunately, until recently there was no
such movement. The campaign in the last two years has certainly brought the
issue onto the media’s agenda and to an extent the agenda of political parties
as well. We hope that it will grow in strength and that we will gradually be
able to reclaim the judiciary and restore it as a robust, independent but
accountable institution, not merely as an instrument for delivering justice but
also for ensuring that the executive and the legislature function in accordance
with the ideals and principles of the Constitution.