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SeparationofPowersandItsDevelopmentwithSpecialReferencetoIndia

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SeparationofPowersandItsDevelopmentwithSpecialReferencetoIndia

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Preeti
Bhardwaj
Mrs.Preeti
Bhardwaj
Assistant
Professor
DepartmentofLawK.U.K.

The Separation of powers is a model for the governance of both democratic and
federative states. The model was first developed in ancient Greece and came into
Viewarticles | Contactauthor
widespreadusebytheRomanRepublicaspartoftheuncodifiedConstitution of the
RomanRepublic,.Thedoctrineofseparationofpowershasemergedinseveralformsatdifferentperiods.Itsorigin
is traceable is Plato and Aristotle, in the 16th and 17th centuries, French philosopher John Bodin and British
politicianLockeexpressedtheirviewsaboutthetheoryofseparationofpowers.ButitwasMontesquieuwhoforthe
firsttimeformulatedthisdoctrinesystematically,scientificallyandclearlyinhisbook"EspritdesLois"TheSpiritof
theLaws,publishedintheyear1748.

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There are three distinct activities in every government through which

the will of the people are expressed. These are the legislative,
executiveandjudicialfunctions of the government. Corresponding to
thesethreeactivitiesarethreeorgansofthegovernment,namelythe
legislature,theexecutiveandthejudiciary.Thelegislativeorganofthe
state makes laws, the executive enforces them and the judiciary
applies them to the specific cases arising out of the breach of law.
Each organ while performing its activities tends to interfere in the
sphereofworkingofanotherfunctionarybecauseastrictdemarcation
of functions is not possible in their dealings with the general public.
Thus, even when acting in ambit of their own power, overlapping
functionstendtoappearamongsttheseorgans.
The question which assumes significance over here is that what
shouldbetherelationamongthesethreeorgansofthestate.Whether
there should be complete separation of powers or there should be

coordinationamongthem.
An analysis into these three organs and the relations between them is to be done with the experience in different
countriesalongwithIndiawhichwillgiveaclearideaaboutthisdoctrineanditsimportanceindifferentConstitutions.
Today all the systems might not be opting for the strict separation of powers because that is undesirable and
impracticablebutimplicationsofthisconceptcanbeseeninalmostallthecountriesinitsdiluted
Background
Itiswidelyacceptedthatforapoliticalsystemtobestable,theholdersofpowerneedtobebalancedoffagainsteach
other. The principle of separation of powers deals with the mutual relations among the three organs of the
government,namelylegislature,executiveandjudiciary.Thisdoctrinetriestobringexclusivenessinthefunctioning
ofthethreeorgansandhenceastrictdemarcationofpoweristheaimsoughttobeachievedbythisprinciple.This
doctrine signifies the fact that one person or body of persons should not exercise all the three powers of the
government.

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Montesquieu, a French scholar, found that concentration of power in one person or a group of persons /results in
tyranny. And therefore for decentralization of power to check arbitrariness, he felt the need for vesting the
governmentalpowerinthreedifferentorgans,thelegislature,theexecutive,andthejudiciary.Theprincipleimplies
thateachorganshouldbeindependentoftheotherandthatnoorganshouldperformfunctionsthatbelongtothe
other.
Therewouldbeanendofeverything,werethesamemanorsamebody,whetherofthenoblesorofthepeople,to
exercisethosethreepowers,thatofenactinglaws,thatofexecutingthepublicresolutions,andoftryingthecauses
ofindividuals.

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Through his doctrine Montesquieu tried to explain that the union of the executive and the legislative power would
leadtothedespotismoftheexecutive,foritcouldgetwhateverlawsitwantedtohave,wheneveritwantedthem.
Similarlytheunionofthelegislativepowerandthejudiciarywouldprovidenodefencefortheindividualagainstthe
state. The importance of the doctrine lies in the fact that it seeks to preserve the human liberty by avoiding
concentrationofpowersinonepersonorbodyofpersons.

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The accumulation of all powers, legislative, executive and judicial, in the same hands whether of one, a few, or
manyandwhetherhereditary,selfappointedorelective,mayjustlybepronouncedtheverydefinitionoftyranny.

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SeparationofPowersandItsDevelopmentwithSpecialReferencetoIndia
Therefore, separation of powers doctrine acts as a check against Tyrannical rule. The purpose underlying the
separationdoctrineistodiffusegovernmentalauthoritysoastopreventabsolutismandguardagainstarbitraryand
tyrannicalpowersofthestate,andtoallocateeachfunctiontotheinstitutionbestsuitedtodischarge.
Meaningofseparation
Understanding that a governance role is to protect individual rights, but acknowledging that governments have
historically been the major violators of these rights, a number of measures have been derived to reduce this
likelihood.TheconceptofSeparationofpowersisonesuchmeasure.ThepremisebehindtheSeparationofPowers
is that when a single person or group has a large amount of power, they can become dangerous to citizens. The
SeparationofPowerisamethodofremovingtheamountofpowerinanygroup'shands,makingitmoredifficultto
abuse.
It is generally accepted that there are three main categories of governmental functions a legislative b executive,
andcjudicial.Likewise,therearethreemainorgansoftheGovernmentinaStatealegislaturebExecutiveandc
JudiciaryAccordingtothetheoryofseparationofpowers,thesethreepowersandfunctionsoftheGovernmentmust,
inafreedemocracy,alwaysbekeptseparateandbeexercisedbythreeseparateorgansofthegovernment.Thus,
legislaturecannotexerciselegislatureorjudicialpowertheExecutivecannotexerciselegislativeorjudicialandthe
JudiciarycannotexerciselegislativeorexecutivepowerofGovernment.
ConstitutionalStatusofSeparationofPowerinIndia
OnacasualglanceattheprovisionsoftheConstitutionofIndia,onemaybeinclinedtosaythatthatthedoctrineof
SeparationofPowersisacceptedinIndia.UndertheIndianConstitution,executivepowersarewiththePresident,
legislativepowerswithParliamentandjudicialpowerswithJudiciarySupremeCourt,HighCourtsandSubordinate
Courts.
ThePresidentsfunctionandpowersareenumeratedintheConstitutionitself.Parliamentiscompetenttomakeany
lawsubjecttotheprovisionsoftheConstitutionandthereisnootherlimitationonitlegislativepower.TheJudiciary
isindependentinitsfieldandtherecanbenointerferencewithitsjudicialfunctionseitherbytheExecutiveorbythe
Legislature.TheSupremeCourtandHighCourtsaregiventhepowerofjudicialreviewandtheycandeclareanylaw
passedbytheParliamentortheLegislatureunconstitutional.Takingintoaccountthesefactors,somejuristsareof
theopinionthatthedoctrineofSeparationofPowershasbeenacceptedintheIndianConstitution.
InI.C.GolakNathv.StateofPunjab,itwasobserved:TheConstitutionbringsintoexistencedifferentconstitutional
entities, namely, the Union, the States and the Union Territories. It creates three major instruments of power,
namely,theLegislature,theExecutiveandtheJudiciary.Itdemarcatestheirjurisdictionminutelyandexpectsthem
toexercisetheirrespectivepowerswithoutoversteppingtheirlimits.Theyshouldfunctionwithinthespheresallotted
tothem.
Ifwestudytheconstitutionalprovisionscarefully,itisclearthatthedoctrineofSeparationofPowershasnotbeen
accepted in India in its strict sense. In India, not only there is functional overlapping but there is personnel
overlappingalso.TheSupremeCourthaspowertodeclarevoidthelawspassedbythelegislatureandtheactions
takenbytheexecutiveiftheyviolateanyprovisionoftheConstitutionorthelawpassedbythelegislatureincaseof
executiveactions.Theexecutivecanaffectthefunctioningofthejudiciarybymakingappointmentstotheofficeof
ChiefJusticeandotherjudges.Onecangoonlistingsuchexamplesyetthelistwouldnotbeexhaustive.
InIndiraNehruGandhiv.RajNarain,itwasobserved:ThatintheIndianConstitutionthereisseparationofpowers
in a broad sense only. A rigid separation of powers as under the American Constitution or under the Australian
Constitution does not apply to India. Chandrachud J. also observed that the political usefulness of doctrine of
SeparationofPowerisnotwidelyrecognized.Noconstitutioncansurvivewithoutaconsciousadherencetoitsfine
checkandbalance.TheprincipleofSeparationofPowerisaprincipleofrestraintwhichhasinittheprecept,innate
intheprudenceofselfpreservation,thatdiscretionisthebetterpartofvalour.
Thus doctrine of separation of powers is not fully accepted in the Indian Constitution. It can be said with the
observationofMukherjee,J.inRamJawayav.StateofPunjab:TheIndianConstitutionhasnotindeedrecognized
thedoctrineofseparationofpowersinitsabsoluterigiditybutthefunctionsofthedifferentpartsorbranchesofthe
GovernmenthavebeensufficientlydifferentiatedandconsequentlyitcanverywellbesaidthatourConstitutiondoes
notcontemplateassumption,byoneorganorpartoftheState,offunctionsthatessentiallybelongtoanother.
ThusreferringtotheabovecontentitprovesthatSeparationofPowerispracticedinIndiabutnotthatrigidly.Itisnot
embodied in the constitution though practiced. The three main powers do cross their limit and interfere in each
otherstaskwhenevernecessary.
Though,justlikeAmericanconstitution,inIndianconstitutionalso,thereisexpressmentionthattheexecutivepower
oftheUnionandofaStateisvestedbytheconstitutioninthePresidentandtheGovernor,respectively,byarticles
531and1541,butthereisnocorrespondingprovisionvestingthelegislativeandjudicialpowersinanyparticular
organ.Ithasaccordinglybeenheldthatthereisnorigidseparationofpowers.
Althoughprimafacieitappearsthatourconstitutionhasbaseditselfupondoctrineofseparationofpowers.Judiciary
isindependentinitsfieldandtherecanbenointerferencewithitsjudicialfunctionseitherbytheexecutiveorthe
legislature.ConstitutionrestrictsthediscussionoftheconductofanyjudgeintheParliament.TheHighCourtsand
theSupremeCourthasbeengiventhepowerofjudicialreviewandtheycandeclareanylawpassedbyparliament
asunconstitutionalThejudgesoftheS.C.areappointedbythePresidentinconsultationwiththeCMandjudgesof
theS.C.TheS.C.haspowertomakeRulesforefficientconductionofbusiness.
ItisnoteworthythatA.50oftheconstitutionputsanobligationoverstatetotakestepstoseparatethejudiciaryfrom
theexecutive.But,sinceitisaDPSP,thereforeitsunenforceable.
InasimilarfashioncertainconstitutionalprovisionsalsoprovideforPowers,PrivilegesandImmunitiestothe.MPs,
Immunityfromjudicialscrutinyintotheproceedingsofthehouse,etc.Suchprovisionsaretherebymakinglegislature
independent,ina way.TheConstitution provides for conferment of executive power onthe President.His powers
andfunctionsareenumeratedintheconstitutionitselfThePresidentandtheGovernorenjoyimmunityfromciviland
criminalliabilities.
But,ifstudiedcarefully,itisclearthatdoctrineofseparationofpowershasnot been accepted in India in its strict
sense.Theexecutiveisapartofthelegislature.itisresponsibletothelegislatureforitsactionsandalsoitderives
itsauthorityfromlegislature.India,sinceitisaparliamentaryformofgovernment,thereforeitisbaseduponintimate
contactandclosecoordinationamongthelegislativeandexecutivewings.However,theexecutivepowervestsin
the President but, in reality he is only a formal head and that, the Real head is the Prime minister along with his
CouncilofMinisters.ThereadingofArt.741makesitclearthattheexecutiveheadhastoactinaccordancewith
theaidandadvicegivenbythecabinet.
Generallythelegislatureistherepositoryofthelegislativepowerbut,undersomespecifiedcircumstancesPresident
isalsoempoweredtoexerciselegislativefunctions.Likewhileissuinganordinance,framingrulesandregulations
relatingtoPublicservicematters,formulatinglawwhileproclamationofemergencyisinforce.Theseweresome
instances of the executive head becoming the repository of legislative functioning. President problems judicial

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SeparationofPowersandItsDevelopmentwithSpecialReferencetoIndia
functionsalso. On the other side, in certain matters Parliament exercises judicial functions too. It can decide the
questionofbreachofitsprivilege,andincaseofimpeachingthePresidentboththehousestakeactiveparticipation
anddecidethecharges.
Judiciary,inIndia,toocanbeseenexercisingadministrativefunctionswhenitsupervisesallthesubordinatecourts
below.Ithaslegislativepoweralsowhichisreflectedinformulationofrulesregulatingtheirownprocedureforthe
conductanddisposalofcases.
So,itsquiteevidentfromtheconstitutionalprovisionsthemselvesthatIndia,beingaparliamentarydemocracy,does
notfollowanabsoluteseparationandis,ratherbaseduponfusionofpowers,whereaclosecoordinationamongst
theprincipalorgansisunavoidableandtheconstitutionalschemeitselfmentionsit.Thedoctrinehas,thus,notbeen
awardedaConstitutionalstatus.Thus,everyorganofthegovernmentisrequiredtoperformallthethreetypesof
functions.Also,eachorganis,insomeformortheother,dependantontheotherorganwhichchecksandbalances
it. The reason for the interdependence can be accorded to the parliamentary form of governance followed in our
country.But,thisdoesntmeanthatthisdoctrineisnotfollowedinIndiaatall.
Exceptwheretheconstitutionhasvestedpowerinabody,theprinciplethatoneorganshouldnotperformfunctions
which essentially belong to others is followed. This observation was made by the Supreme Court in the re Delhi
LawsActcase,wherein,itwasheldbyamajorityof52,that,thetheoryofseparationofpowersisnotpartandparcel
ofourConstitution.But,itwasalsoheldthatexceptforexceptionalcircumstanceslikeinA.123,A.357,itisevident
that constitution intends that the powers of legislation shall be exercised exclusively by the Legislature. As Kania,
C.J., observed Although in the constitution of India there is no express separation of powers, it is clear that a
legislature is created by the constitution and detailed provisions are made for making that legislature pass laws.
Doesitnotimplythatunlessitcanbegatheredfromotherprovisionsoftheconstitution,otherbodiesexecutiveor
judicialarenotintendedtodischargelegislativefunctions?
In essence they imported the modem doctrine of separation of powers. While dealing with the application of this
doctrine,itisquintessentialtomentiontherelevantcaseswhichclarifythesituationfurther.
SeparationofPowersandJudicialPronouncementsinIndia
In India, we follow a separation of functions and not of powers. And hence, we dont abide by the principle in its
rigidity. An example of it can be seen in the exercise of functions by the Cabinet ministers, who exercise both
legislative and executive functions. A. 741 wins them an upper hand over the executive by making their aid and
advicemandatoryfortheformalhead.Theexecutive,thus,isderivedfromthelegislatureandisdependantonit,for
itslegitimacy.ThiswastheobservationmadebytheHonbleS.C.inRamJawayav.Punjab.
OnthequestionthatwheretheamendingpoweroftheParliamentdoesliesandwhetherA.368confersanunlimited
amendingpoweronParliament,theS.C.inKe.savanandaBharatiheldthatamendingpowerwasnowsubjecttothe
basicfeaturesoftheconstitution.Andhence,anyamendmenttamperingtheseessentialfeatureswillbestruckdown
asunconstitutionalBeg,3.addedthatseparationofpowersisapartofthebasicstructureoftheconstitution.None
ofthethreeseparateorgansoftherepubliccantakeoverthefunctionsassignedtotheother.Thisschemecannot
bechangedevenbyresortingtoA.368oftheconstitution.Thereareattemptsmadetodilutetheprinciple,tothe
levelof
Inasubsequentcaselaw,S.C.hadoccasiontoapplytheKesavanandarulingregardingthenonamendabilityofthe
basicfeaturesoftheconstitutionandastrictadherencetodoctrineofseparationofpowerscanbeseen.InIndira
GandhiNehruv.RajNarain,wherethedisputeregardingP.M.electionwaspending beforethe SupremeCourt, it
was held that adjudication of a specific dispute is a judicial function which parliament, even under constitutional
amendingpower,cannotexercise.So,themaingroundonwhichtheamendmentwasheldultravireswasthatwhen
theconstituentbodydeclaredthattheelectionofP.M.wontbevoid,itdischargedajudicialfunctionwhichaccording
to the principle of separation it shouldnt have done. The place of this doctrine in Indian context was made a bit
clearerafterthisjudgment.
ThoughinIndiastrictseparationofpowerslikeinAmericansenseisnotfollowedbut,theprincipleofchecksand
balances, a part of this doctrine is. Therefore, none of the three organs can usurp the essential functions of the
organs,whichconstituteapartofbasicstructuredoctrinesomuchsothat,notevenbyamendingtheconstitution
andifanysuchamendmentismade,thecourtwillstrikeitdownasunconstitutional
Conclusion
IthasbeenwellsaidbyLordActon:PowercorruptsandabsolutePowertendstocorruptabsolutely.
Conferment of power in a single body leads to absolutism but, even after distinguishing the functions, when an
authority wields public power, then providing absolute and sole discretion to the body in the matters regarding its
sphere of influence may also cause abuse of such power. Therefore, the doctrine of separation of powers is a
theoreticalconceptandisimpracticabletofollowitabsolutely.
Thestatusofmodemstateisalotmoredifferentthanwhatitusedtobe.Ithasevolvedagreatdealfromaminimal,
noninterventioniststatetoanwelfarestate,whereinithasmultifariousrolestoplay,likethatofaprotector,arbiter,
controller, provider. This omnipresence of the state has rendered its functions becoming diverse and problems,
interdependent an0d any serious attempt to define and separate those functions would cause inefficiency in
government.Hence,adistinctionismadebetweenessentialandincidentalpowersofanorgan.Accordingtothis
differentiation one organ cant claim the powers essentially belonging to other organ because that would be a
violationoftheprincipleofseparationofpowers.But,itcanclaimtheexerciseoftheincidentalfunctionsofanother
organ.Thisdistinctionpreventsencroachmentofanorganintotheessentialsphereofactivityoftheother.
Itistheexerciseofincidentalpowersonlywhichhasmadeexecutivegroweverywhereinthissocialwelfarestate.It
hasassumedavitalrolebut,ithasnot usurped any role from any other wing. It just happened that the other two
organs,namely,judiciaryandlegislature,becameunsuitableforundertakingthefunctionsofthiswelfarestateand
asaconsequencethefunctionsoftheexecutiveincreased.Ascontrollerandprovider,thejudicialprocesseswere
verytimeconsumingandthelegislaturewasoverburdenedwithwork.Therefore,itwasinnaturalschemeofthings
whichmadetheadministratorsendupperformingavarietyofrolesinthemodemstateincludingthoseoflegislature
andjudiciarytoo,toanextent.
Further,thecheckoftheadjudicatorsoverfunctioning'softheothertwohasbeenregardedasanessentialfeature
of the basic structure theory. The judicial review power is a preventive measure in a democratic country which
prevents administrators and lawmakers to exercise their whims and caprices on the lay man and turn it into a
despotic regime. There have been cases where the judiciary has dictated the ambit of their power to the
implementersandthemodetoexerciseit.Noteventherepresentativesofpeopleareimmunetothepowerofthe
courts.TworecentSupremeCourtjudgmentsonthecashforquerycaseandontheNinthSchedulehaveonce
againbroughtthepowersandrolesofthelegislatureandthejudiciaryintofocus.Inthecaseoftheformer,thecourt
upheld the Lok Sabhas decision to expel members of Parliament, who were caught on camera taking bribes, but
clearlyrejectedthecontentionthatitcannotreviewparliamentspowertoexpelMPsandclaimedforitselftheroleof
finalarbiter on decisions taken by the legislature. The judgment on the Ninth Schedule has curtailed Parliaments
powertokeepcertainprogressivelawsoutsidejudicialReview.

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SeparationofPowersandItsDevelopmentwithSpecialReferencetoIndia
In the Second case, ie., I.R. Coelho vs. State of Tamil Nadu, S.C. took the help of doctrine of basic structure as
propoundedinKesavanandaBharaticaseandsaidthatNinthScheduleisviolativeofthisdoctrineandhencefrom
nowontheNinthSchedulewillbeamenabletojudicialreviewwhichalsoformspartofthebasicfeaturetheory.The
basicstructuretheoryandtheGoldentrianglecomprisingofA.14,19,and21,willnowbethecriterioninscrutinyof
theNinthSchedule.Inademocraticcountrygoalsareenshrinedintheconstitutionandthestatemachineryisthen
setup accordingly. And here it can be seen that constitutional provisions are made as such to support a
parliamentaryformofgovernmentwheretheprinciplecantbefollowedrigidly.TheS.C.rulingsalsojustifythatthe
alternative system of checks and balances is the requirement, not the strict doctrine. Constitutionalism the
philosophicalconceptoftheconstitutionalsoinsistsonlimitationsbeingplacedupongovernmentalpowertosecure
basicfreedomsoftheindividual.Hence,theconclusiondrawnoutofthestudyisthatthereisnostrictseparationof
powersbutthefunctionsofthedifferentbranchesofthegovernmenthavebeensufficientlydifferentiated.
References
1.Bakshi,P.M.,'TheConstitutionofIndia',UniversalLawPublishingCo.Pvt.Ltd.,2005.
2.Massey,J.P.,'AdministrativeLaw',EasternbookCompany,Lucknow,SixthEdition,2005
3.Takwani,C.K.,'LecturesOnAdministrativeLaw',EasternBookCompany,Lucknow,2004
4.Sathe,S.P.,'AdministrativeLaw',LexisNexis,NewDelhi,SeventhEdition,2004
5.Basu,D.D.,'AdministrativeLaw',KamalLawHouse,Kolkata,SixthEdition,2004
6.Jain,M.P.,'TreatiseonAdministrativeLaw',WadhwaandcompanyLawPublishers,Agra,Edition1996
7.Jain,M.P.,'IndianConstitutionalLaw',Wadhwaandcompany,Nagpur,FifthEdition,2005
Articles:
1.Siddanth,"SeparationofPowers:Constitutionalplanandpractice,"September,2010.
2.Prachishah,"SeparationofPowersinIndiaandUSA,"December,2010.
3.AmanChhibber,"SeparationofPowersItsscopeandchangingequation,"October,2007.
4.BalasahebPandhre,"DoctrineofSeparationofPower,andworkingofthreeorgansofState".
5.Dr.C.R.Jilova,"SeparationofPowersinIndia:MythorReality.
6.ArunodayBajpai,"JudicialActivitisiminIndia",P.D/Nov./2008.
OtherSources:
1'JudicialChallenge',Frontline,February9,2007
Theauthorcanbereachedat:preeti.sharma.bhardwaj97@legalserviceindia.com

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