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CRITICISM OF FUNDAMENTAL DUTIES
The Fundamental Duties mentioned in Part IVA of the Constitution
have been criticised on the following grounds:
1. The list of duties is not exhaustive as it does not cover other
important duties like casting vote, paying taxes, family
planning and so on. In fact, duty to pay taxes was
recommended by the Swaran Singh Committee.
2. Some of the duties are vague, ambiguous and difficult to be
understood by the common man. For example, different
interpretations can be given to the phrases like ‘noble
ideals’, ‘composite culture’, ‘scientific temper’ and so on2 .
3. They have been described by the critics as a code of moral
precepts due to their non-justiciable character. Interestingly,
the Swaran Singh Committee had suggested for penalty or
punishment for the non-performance of Fundamental Duties.
4. Their inclusion in the Constitution was described by the
critics as superfluous. This is because the duties included in
the Constitution as fundamental would be performed by the
people even though they were not incorporated in the
Constitution3 .
5. The critics said that the inclusion of fundamental duties as
an appendage to Part IV of the Constitution has reduced
their value and significance. They should have been added
after Part III so as to keep them on par with Fundamental
SIGNIFICANCE OF FUNDAMENTAL DUTIES
In spite of criticisms and opposition, the fundamental duties are
considered significant from the following viewpoints:
1. They serve as a reminder to the citizens that while enjoying
their rights, they should also be conscious of duties they owe
to their country, their society and to their fellow citizens.
2. They serve as a warning against the antinational and
antisocial activities like burning the national flag, destroying
public property and so on.
3. They serve as a source of inspiration for the citizens and
promote a sense of discipline and commitment among them.
They create a feeling that the citizens are not mere
spectators but active participants in the realisation of
national goals.
4. They help the courts in examining and determining the
constitutional validity of a law. In 1992, the Supreme Court
ruled that in determining the constitutionality of any law, if a
court finds that the law in question seeks to give effect to a
fundamental duty, it may consider such law to be
‘reasonable’ in relation to Article 14 (equality before law) or
Article 19 (six freedoms) and thus save such law from
unconstitutionality.
5. They are enforceable by law. Hence, the Parliament can
provide for the imposition of appropriate penalty or
punishment for failure to fulfil any of them.
H.R. Gokhale, the then Law Minister, gave the following reason
for incorporating the fundamental duties in the Constitution after
twenty-six years of its inauguration: ‘In post-independent India,
particularly on the eve of emergency in June 1975, a section of
the people showed no anxiety to fulfil their fundamental
obligations of respecting the established legal order ..... the
provisions of chapter on fundamental duties would have a
sobering effect on these restless spirits who have had a host of
Indira Gandhi, the then Prime Minister, justified the inclusion of
fundamental duties in the Constitution and argued that their
inclusion would help to strengthen democracy. She said, ‘the
moral value of fundamental duties would be not to smoother rights
but to establish a democratic balance by making the people
conscious of their duties equally as they are conscious of their
rights’.
The Opposition in the Parliament strongly opposed the
inclusion of fundamental duties in the Constitution by the
Congress government. However, the new Janata Government
headed by Morarji Desai in the post-emergency period did not
annul the Fundamental Duties. Notably, the new government
sought to undo many changes introduced in the Constitution by
the 42nd Amendment Act (1976) through the 43rd Amendment
Act (1977) and the 44th Amendment Act (1978). This shows that
there was an eventual consensus on the necessity and desirability
of including the Fundamental Duties in the Constitution. This is
more clear with the addition of one more Fundamental Duty in
VERMA COMMITTEE OBSERVATIONS
The Verma Committee on Fundamental Duties of the Citizens
(1999) identified the existence of legal provisions for the
implementation of some of the Fundamental Duties. They are
mentioned below:
1. The Prevention of Insults to National Honour Act (1971)
prevents disrespect to the Constitution of India, the National
Flag and the National Anthem.
2. The various criminal laws in force provide for punishments
for encouraging enmity between different sections of people
on grounds of language, race, place of birth, religion and so
on.
3. The Protection of Civil Rights Act4 (1955) provides for
punishments for offences related to caste and religion.
4. The Indian Penal Code (IPC) declares the imputations and
assertions prejudicial to national integration as punishable
offences.
5. The Unlawful Activities (Prevention) Act of 1967 provides for
the declaration of a communal organisation as an unlawful
association.
6. The Representation of People Act (1951) provides for the
disqualification of members of the Parliament or a state
legislature for indulging in corrupt practice, that is, soliciting
votes on the ground of religion or promoting enmity between
different sections of people on grounds of caste, race,
language, religion and so on.
7. The Wildlife (Protection) Act of 1972 prohibits trade in rare
and endangered species.
8. The Forest (Conservation) Act of 1980 checks indiscriminate
deforestation and diversion of forest land for nonforest
purposes.
NOTES AND REFERENCES
1. The Fundamental Rights guaranteed by Articles 14, 20,
all persons whether citizens or foreigners.
2. D.D. Chawla, the then president of the National Forum
of Lawyers and Legal Aid, Delhi, observed: ‘The duties
may be spelt out in a more concrete form, one is left
guessing the noble ideals. To some even the Bhagat
Singh cult may be such an ideal as inspired our national
struggle. Again what is the rich heritage of our
composite culture and what is scientific temper,
humanism and the spirit of inquiry and reform? The
values are beyond the ken of the general run of the
people and carry no meaning to them. Duties should be
such and so worded as to catch the imagination of the
common man.’
D.D. Chawla, ‘The Concept of Fundamental Duties’,
Socialist India (New Delhi), October 23, 1976, P. 44–45.
3. C.K. Daphtary, former Attorney General of India, while
opposing the inclusion of fundamental duties in the
Constitution, said that more than 99.9 per cent of the
citizens were law-abiding and there was no need to tell
them about their duties. He argued that as long as the
people are satisfied and contended, they willingly
perform their duties. He said, ‘To tell them what their
duties are implies that they are not content. If that is the
case after 26 years, it is not their fault’. A.K. Sen also
opposed the inclusion of fundamental duties in the
Constitution and remarked, ‘A democratic set-up,
instead of thriving on the willing cooperation and
confidence of people, is reduced to the position of a
harsh school master asking the student to stand up on
the class room bench because he has not done the
home work. To begin with, it were the people of India
who created the Sovereign Democratic Republic of
India in 1950, but the Republic is now claiming to be the
master of the citizens enjoining habitual obedience to its
command to do his duty. The state’s confidence in the
citizens is obviously shaken’.
10 Amendment of the Constitution
L
ike any other written Constitution, the Constitution of India
also provides for its amendment in order to adjust itself to
the changing conditions and needs. However, the
procedure laid down for its amendment is neither as easy as in
Britain nor as difficult as in USA. In other words, the Indian
Constitution is neither flexible nor rigid but a synthesis of both.
Article 368 in Part XX of the Constitution deals with the powers
of Parliament to amend the Constitution and its procedure. It
states that the Parliament may, in exercise of its constituent
power, amend by way of addition, variation or repeal any provision
of the Constitution in accordance with the procedure laid down for
the purpose. However, the Parliament cannot amend those
provisions which form the ‘basic structure’ of the Constitution. This
PROCEDURE FOR AMENDMENT
The procedure for the amendment of the Constitution as laid down
in Article 368 is as follows:
1. An amendment of the Constitution can be initiated only by
the introduction of a bill for the purpose in either House of
Parliament and not in the state legislatures.
2. The bill can be introduced either by a minister or by a private
member and does not require prior permission of the
president.
3. The bill must be passed in each House by a special majority,
that is, a majority of the total membership of the House and
a majority of two-thirds of the members of the House present
and voting.
4. Each House must pass the bill separately. In case of a
disagreement between the two Houses, there is no provision
for holding a joint sitting of the two Houses for the purpose of
deliberation and passage of the bill.
5. If the bill seeks to amend the federal provisions of the
Constitution, it must also be ratified by the legislatures of half
of the states by a simple majority, that is, a majority of the
members of the House present and voting.
6. After duly passed by both the Houses of Parliament and
ratified by the state legislatures, where necessary, the bill is
presented to the president for assent.
7. The president must give his assent to the bill. He can neither
withhold his assent to the bill nor return the bill for
reconsideration of the Parliament.2
8. After the president’s assent, the bill becomes an Act (i.e., a
constitutional amendment act) and the Constitution stands
amended in accordance with the terms of the Act.
TYPES OF AMENDMENTS
Article 368 provides for two types of amendments, that is, by a
special majority of Parliament and also through the ratification of
half of the states by a simple majority. But, some other articles
provide for the amendment of certain provisions of the
Constitution by a simple majority of Parliament, that is, a majority
of the members of each House present and voting (similar to the
ordinary legislative process). Notably, these amendments are not
deemed to be amendments of the Constitution for the purposes of
Article 368.
Therefore, the Constitution can be amended in three ways:
(a) Amendment by simple majority of the Parliament,
(b) Amendment by special majority of the Parliament, and
(c) Amendment by special majority of the Parliament and the
ratification of half of the state legislatures.
By Simple Majority of Parliament
A number of provisions in the Constitution can be amended by a
simple majority of the two Houses of Parliament outside the scope
of Article 368. These provisions include:
1. Admission or establishment of new states.
2. Formation of new states and alteration of areas, boundaries
or names of existing states.
3. Abolition or creation of legislative councils in states.
4. Second Schedule–emoluments, allowances, privileges and
so on of the president, the governors, the Speakers, judges,
etc.
5. Quorum in Parliament.
6. Salaries and allowances of the members of Parliament.
7. Rules of procedure in Parliament.
8. Privileges of the Parliament, its members and its
committees.
9. Use of English language in Parliament.
10. Number of puisne judges in the Supreme Court.
13. Citizenship–acquisition and termination.
14. Elections to Parliament and state legislatures.
15. Delimitation of constituencies.
16. Union territories.
17. Fifth Schedule–administration of scheduled areas and
scheduled tribes.
18. Sixth Schedule–administration of tribal areas.
By Special Majority of Parliament
The majority of the provisions in the Constitution need to be
amended by a special majority of the Parliament, that is, a
majority of the total membership of each House and a majority of
two-thirds of the members of each House present and voting. The
expression ‘total membership’ means the total number of
members comprising the House irrespective of fact whether there
are vacancies or absentees.
‘Strictly speaking, the special majority is required only for voting
at the third reading stage of the bill but by way of abundant
caution the requirement for special majority has been provided for
in the rules of the Houses in respect of all the effective stages of
the bill’3 .
The provisions which can be amended by this way includes: (i)
Fundamental Rights; (ii) Directive Principles of State Policy; and
(iii) All other provisions which are not covered by the first and third
categories.
By Special Majority of Parliament and Consent of
States
Those provisions of the Constitution which are related to the
federal structure of the polity can be amended by a special
majority of the Parliament and also with the consent of half of the
state legislatures by a simple majority. If one or some or all the
remaining states take no action on the bill, it does not matter; the
moment half of the states give their consent, the formality is
completed. There is no time limit within which the states should
1. Election of the President and its manner.
2. Extent of the executive power of the Union and the states.
3. Supreme Court and high courts.
4. Distribution of legislative powers between the Union and the
states.
5. Goods and Services Tax Council3a.
6. Any of the lists in the Seventh Schedule.
7. Representation of states in Parliament.
8. Power of Parliament to amend the Constitution and its
CRITICISM OF THE AMENDMENT PROCEDURE
Critics have criticised the amendment procedure of the
Constitution on the following grounds:
1. There is no provision for a special body like Constitutional
Convention (as in USA) or Constitutional Assembly for
amending the Constitution. The constituent power is vested
in the Parliament and only in few cases, in the state
legislatures.
2. The power to initiate an amendment to the Constitution lies
with the Parliament. Hence, unlike in USA4 , the state
legislatures cannot initiate any bill or proposal for amending
the Constitution except in one case, that is, passing a
resolution requesting the Parliament for the creation or
abolition of legislative councils in the states. Here also, the
Parliament can either approve or disapprove such a
resolution or may not take any action on it.
3. Major part of the Constitution can be amended by the
Parliament alone either by a special majority or by a simple
majority. Only in few cases, the consent of the state
legislatures is required and that too, only half of them, while
in USA, it is three-fourths of the states.
4. The Constitution does not prescribe the time frame within
which the state legislatures should ratify or reject an
amendment submitted to them. Also, it is silent on the issue
whether the states can withdraw their approval after
according the same.
5. There is no provision for holding a joint sitting of both the
Houses of Parliament if there is a deadlock over the
passage of a constitutional amendment bill. On the other
hand, a provision for a joint sitting is made in the case of an
ordinary bill.
6. The process of amendment is similar to that of a legislative
process. Except for the special majority, the constitutional
7. The provisions relating to the amendment procedure are too
sketchy. Hence, they leave a wide scope for taking the
matters to the judiciary.