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The Supreme Court's Decision on the Presidential Reference

(Prelims: Contemporary Issues, Indian Political System)
(Mains, General Studies Paper 2: Indian Constitution - Features, Amendments, Significant Provisions, and Basic Structure; Issues and Challenges Related to the Federal Structure)

Context

On November 20, 2025, the Supreme Court delivered its detailed opinion on the 14 questions referred by the President for advice (Presidential Reference). This reference was issued to clarify constitutional disputes arising from the Tamil Nadu Governor's case. Some states described it as an "appeal in disguise," which the Supreme Court rejected.

Background of the Case

  • On April 8, 2025, a two-judge bench of the Supreme Court delivered a significant judgment, setting a time limit (no deadline) for governors and the President to decide on bills sent by state legislatures. 
  • In this decision, the Court established the doctrine of 'deemed assent' when a decision is not taken within a reasonable time.
  • The Central Government did not file a review against this, but instead, the President sought a reference from the Supreme Court under Article 143.
  • Some opposition-ruled states (those in opposition to the main party in the Central Government) argued that this reference was essentially an attempt to appeal the Tamil Nadu decision.
  • The Supreme Court rejected this, stating that advice given under Article 143 can, if necessary, influence a previous decision.

Meaning of a Presidential Reference

  • Under Article 143, when the President seeks advice from the Supreme Court on a law, dispute, or constitutional interpretation, it is called a Presidential Reference.
  • This is advisory jurisdiction. The Court's opinion is not binding, but it carries significant weight. Its purpose is to resolve constitutional ambiguities.

Recent Supreme Court Decision

  • According to the Supreme Court, the court cannot set a time limit for the Governor or the President as it is not mentioned in the Constitution.
  • The Governor cannot remain inactive for a long time. This disrupts the democratic process.
  • If necessary, advice given under Article 143 can influence a previous decision.
  • The court cannot intervene on the basis of the subject matter of a bill before it becomes law.
  • The Governor/President's decisions are not subject to judicial review before the bill becomes law.
  • The principle of 'Deemed Assent' for a bill, i.e., a bill cannot be considered automatically approved after a fixed time, is unconstitutional.
  • The Governor cannot personally participate in court proceedings (Article 361).
  • Some questions did not fall within the scope of the reference and were therefore returned unanswered.

Criticism: Appeal in Disguise

  • Some states argued that the Presidential Reference was actually an indirect appeal against the decision of the Governor of Tamil Nadu.
  • Article 143 should not be used as a substitute for a review petition or curative petition.
  • The Supreme Court stated that historical precedents (1978 Reference, 2G Reference) show that Article 143 advice can overrule a prior decision if necessary.
  • Therefore, this reference cannot be considered an 'appeal in disguise'.

Supreme Court: Answers to 14 Questions of the Presidential Reference

Question 1. What are the constitutional options available to the Governor when a bill is presented to him under Article 200 of the Constitution?

Answer: To reserve the bill for the President's consideration or, if the bill is not a money bill, to withhold assent and return it to the legislature with comments.

Question 2. Is the Governor bound by the aid and advice of the Council of Ministers under Article 200?

Answer: The Governor has discretion and is not bound by the aid and advice of the Council of Ministers.

Question 3. Is the Governor's exercise of constitutional discretion under Article 200 justifiable?

Answer: The discharge of the Governor's functions under Article 200 is not justifiable. However, in clear circumstances of indefinite inaction, the court has limited power to issue a mandamus to the Governor to take a decision within a reasonable period.

Question 4. Does Article 361 impose a complete bar on judicial review of the Governor's actions under Article 200?

Answer: Article 361 of the Constitution imposes a complete bar on judicial review with respect to subjecting the Governor personally to judicial proceedings.

Question 5. Can a time limit be set for exercising powers under Article 200?

Answer: This is not justified because the Constitution is silent on this.

Question 6. Is the President's exercise of constitutional discretion under Article 201 of the Constitution justified?

Answer: Following the argument given regarding the Governor, the President's consent under Article 201 is also not justified.

Question 7. Can the President be bound by a time limit when exercising powers under Article 201?

Answer: For the same reasons given for the Governor, the President cannot be bound by a judicially prescribed time limit.

Question 8. Is the President required to consult the Supreme Court whenever a Governor reserves his assent to a bill?

Answer: The President is not required to consult the Supreme Court. The President's subjective satisfaction is sufficient.

Question 9. Are the decisions of the Governor and the President under Articles 200 and 201 of the Constitution justiciable at the pre-enactment stage of a law?

Answer: The decisions of the Governor and the President under Articles 200 and 201 are not justiciable at the pre-enactment stage of a law. It is improper for courts to pass a judicial judgment on the subject matter of a bill before it becomes law.

Question 10. Can the exercise of constitutional powers and orders of the President/Governor under Article 142 of the Constitution be substituted in any way?

Answer: The exercise of constitutional powers and orders of the President/Governor cannot be substituted in any way under Article 142, nor does it allow for the concept of "deemed assent" of bills.

Question 11. Is a law made by a State Legislature an applicable law without the Governor's assent under Article 200 of the Constitution of India?

Answer: There is no question of a law made by a State Legislature being applicable without the Governor's assent under Article 200.

Question 12. In view of the provisions of Article 145(3) of the Indian Constitution, is it not mandatory for any bench of the Court to first decide whether a case involves substantial questions of law and should be referred to a bench of at least five judges?

Answer: Returned unanswered. Irrelevant to the context.

Question 13. Are the powers of the Supreme Court under Article 142 of the Indian Constitution limited to matters of procedural law?

Answer: It is not possible to answer definitively. The scope of Article 142 is given as part of Question 10.

Question 14. Does the Constitution prevent the Supreme Court from resolving Centre-State disputes through any means other than litigation under Article 131?

Answer: Irrelevant to the functional nature of the reference. Therefore, returned unanswered.

Significance of the Judgment

  • The federal structure of the Constitution received clear direction.
  • Ambiguities regarding the roles of Governors and the President were removed.
  • The emphasis on preventing "prolonged inaction" strengthens the democratic process.
  • The interpretation of Article 143 will serve as a guide in future constitutional disputes.
  • Balance and transparency in Centre-State relations will be enhanced.
  • States will have a clear understanding of the circumstances under which they can approach the Court.

Relevant Articles

  • Article 131: Original jurisdiction over disputes between the Centre and the States
  • Article 141: Laws declared by the Supreme Court to be binding on the whole of India
  • Article 142: Full powers of the Supreme Court to administer justice
  • Article 143: The President to seek advice from the Supreme Court
  • Article 144: All authorities to assist the Supreme Court
  • Article 200: Options for the Governor to decide on State Bills
  • Article 201: The President to decide on State Bills
  • Article 361: The Governor/President is exempt from personal responsibility
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