common cause v. union of india.pdf

8/9/2019 Common Cause v. Union of India.pdf

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REPORTABLE

IN THE SUPREME COURT OF INDIA

CIVIL ORIGINAL JURISDICTIONWRIT PETITION (CIVIL) NO. 13 OF 2003

COMMON CAUSE ...PETITIONER (S)

VERSUS

UNION OF INDIA ...RESPONDENT (S)

WITH

W.P. (C) No. 19 o! 200"#

W.P. (C) No.302 o! 2012

J U D G M E N T

RANJAN GOGOI$ J.

1. Common Cause and Centre for Pub !" Interest #!t!$at!on%

t&o re$!stered bod!es% 'a e a roa"'ed t'!s Court under

Art!" e *+ of t'e Const!tut!on see,!n$ an a ro r!ate &r!t to

restra!n t'e Un!on of Ind!a and a State -o ernments from

us!n$ ub !" funds on -o ernment ad ert!sements &'!"' are

r!mar! !ntended to ro/e"t !nd! !dua fun"t!onar!es of t'e

-o ernment or a o !t!"a art . T'e &r!t et!t!oners 'a e a so

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"!t!1ens as $uaranteed b Art!" e 23 and +2 of t'e Const!tut!on

of Ind!a.

3. T'e &r!t et!t!ons% f! ed as ub !" !nterest !t!$at!ons% &ere

res!sted b t'e Un!on of Ind!a r!mar! on t'e $round t'at t'e

!ssues sou$'t to be ra!sed erta!n to $o ernmenta o !"!es

and e4e"ut! e de"!s!ons !n res e"t of &'!"' !t ma not be

a ro r!ate for t'!s Court to a do&n b!nd!n$ $u!de !nes

under Art!" e 23+. T'e de"!s!on of t'!s Court !n Manzoor Ali

Khan & Anr. Vs. Union of India & Ors. 1 and a

ronoun"ement of t'e De '! 5!$' Court !n Umesh Mohan

Sethi Vs. Union of India & Anr. 2 'a e been re !ed u on b

t'e Un!on !n su ort of !ts abo e stated stand.

". T'e !ssues ar!s!n$ !n t'e &r!t et!t!ons &ere "ons!dered

b t'!s Court !n an ear !er round of e4'aust! e 'ear!n$s. 6

order dated +*.73.+723% t'!s Court% on "ons!derat!on of t'e

res e"t! e stands of t'e art!es and b re !n$ on t'e

r!n"! es a!d do&n !n t'e de"!s!ons s e"!f!"a referred to !n

t'e aforesa!d order dated +*.73.+723% inter alia % 'e d t'at

t'ere !s no d!s ute t'at 8 r!mar "ause of $o ernment

1 (2014) 7 SCC 3212 WP (C) No.2926 of 2012 decided on 12.12.2012

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ad ert!sement !s to use ub !" funds to !nform t'e ub !" of

t'e!r r!$'ts% ob !$at!ons% and ent!t ements as &e as to e4 a!n

-o ernment o !"!es% ro$rammes% ser !"es and !n!t!at! es.9 It

&as furt'er 'e d t'at on su"' $o ernment ad ert!sements

&'!"' do not fu f! t'e abo e re:u!s!tes &! fa fou of t'e area

of erm!ss!b e ad ert!sements. T'!s Court a",no& ed$ed t'e

fa"t t'at t'e d! !d!n$ !ne bet&een erm!ss!b e ad ert!sements

t'at are a art of $o ernment messa$!n$ and ad ert!sements

t'at are 8 o !t!"a mot! ated9 ma at t!mes $ets b urred. As

t'e mater!a s a!d before t'e Court b t'e art!es &ere found

to be !nade:uate for t'e ur ose of e o !n$ &'at &ou d be t'e

best ra"t!"es ,ee !n$ !n !e& t'e re a! !n$ s"enar!o !n ot'er

/ur!sd!"t!ons a"ross t'e $ obe% t'!s Court fe t t'e ne"ess!t of

"onst!tut!n$ a Comm!ttee "ons!st!n$ of (2) Prof. (Dr.) N.R.

Mad'a a Menon% former D!re"tor% Nat!ona ;ud!"!a A"adem %

6'o a (+) Mr. T.


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re ort 'ad been subm!tted b t'e Comm!ttee su$$est!n$ a set

of $u!de !nes for a ro a of t'!s Court. It !s t'e ea of t'e

et!t!oner t'at t'e sa!d $u!de !nes s'ou d be a ro ed b t'!s

Court and d!re"t!ons be !ssued under Art!" e 23+ of t'e

Const!tut!on of Ind!a for enfor"ement of t'e sa!d $u!de !nes

unt! an a ro r!ate e$!s at!on !n t'!s re$ard !s brou$'t !nto

effe"t b t'e Par !ament.

&. T'e "ontents of t'e $u!de !nes su$$ested b t'e "ourt

a o!nted Comm!ttee ma be usefu e4tra"ted 'ere!nbe o&=>

8GUIDELINES ON CONTENT REGULATION OF GOVERNMENT ADVERTISING

(2) T'ese -u!de !nes s'a be "a ed t'e -o ernmentAd ert!sement (Content Re$u at!on) -u!de !nes+723.

(+) T'e s'a "ome !nto for"e &!t' effe"t from......

+. APPLICATION'

(2) T'ese -u!de !nes s'a a to a -o ernmentad ert!sements ot'er t'an C ass!f!edAd ert!sements.

(+) T'ese -u!de !nes s'a a to t'e "ontent of a -o ernment Ad ert!s!n$ t! a su!tab e e$!s at!on!s ena"ted b t'e -o ernment to re ent t'e m!suseof ub !" funds on ad ert!sements to $a!n o !t!"am! ea$e as d!st!n"t from e$!t!mate -o ernmentmessa$!n$.

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(*) T'ese -u!de !nes s'a a to a ?

(a) !nst!tut!ons of -o ernment@

(b) ub !" se"tor underta,!n$s@

(") o"a bod!es and ot'er autonomousbod!es0or$an!1at!ons estab !s'ed under aStatute.

*. DEFINITIONS'

In t'ese -u!de !nes un ess t'e "onte4t ot'er&!sere:u!res=

(a) 8C ass!f!ed Ad ert!sements9 !n" ude ub !"not!"es% tenders% re"ru!tment not!"es% statutor not!f!"at!ons.

(b) 8DAVP -u!de !nes9 means t'e e4!st!n$ $u!de !nesof t'e D!re"torate of Ad ert!s!n$ and V!suaPub !"!t of t'e M!n!str of Informat!on and6road"ast!n$ dea !n$ &!t' t'e e !$!b! !t and

em ane ment ro"edures and rates of a mentand su"' ot'er matters@

(c) 8-o ernment9 means Centra -o ernment% State-o ernments0Un!on Terr!tor Adm!n!strat!onsand a so !n" udes o"a bod!es% ub !" se"torunderta,!n$s and ot'er autonomousbod!es0or$an!sat!ons estab !s'ed under aStatute.

(d) 8-o ernment ad ert!s!n$9 means an messa$e%"on e ed and a!d for b t'e $o ernment for

a"ement !n med!a su"' as ne&s a ers%te e !s!on% rad!o% !nternet% "!nema and su"'ot'er% med!a but does not !n" ude " ass!f!edad ert!sements@ and !n" udes bot' "o (&r!ttente4t0aud!o) and "reat! es ( !sua s0 !deo0mu t!

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med!a) ut out !n r!nt% e e"tron!"% outdoor ord!$!ta med!a.

OBJECTS'

T'e ob/e"ts of t'ese -u!de !nes are=>(a) to re ent arb!trar use of ub !" funds forad ert!s!n$ b ub !" aut'or!t!es to ro/e"t art!"u ar

ersona !t!es% art!es or $o ernments &!t'out an attendant ub !" !nterest.

(b) ne!t'er to be !tt e t'e need nor to den t'e aut'or!t of t'e Un!on and State -o ernments and !ts a$en"!es tod!ssem!nate !nformat!on ne"essar for ub !" to ,no& ont'e o !"!es and ro$rammes of -o ernment but on toe4" ude t'e oss!b! !t of an m!suse of ub !" funds onad ert!sement "am a!$ns !n order to $a!n o !t!"am! ea$e b t'e o !t!"a estab !s'ment@

(") to address t'e $a !n t'e e4!st!n$ DAVP -u!de !nes&'!"' on dea &!t' t'e e !$!b! !t and em ane ment of ne&s a ers0/ourna s or ot'er med!a% t'e!r rates of

a ment% and su"' !,e matters and not on 'o& to

re$u ate t'e "ontent of -o ernment ad ert!sements@

(d) to ensure t'at 8a $o ernment a"t! !t!es sat!sf t'etest of reasonab eness and ub !" !nterest% art!"u ar &'! e dea !n$ &!t' ub !" funds and ro ert 9@

(e) to ensure t'at $o ernment messa$!n$ !s &e"o>ord!nate% effe"t! e mana$ed !n t'e best demo"rat!"trad!t!ons and !s res ons! e to t'e d! erse !nformat!on

needs of t'e ub !".

. GOVERNMENT ADVERTISEMENT TO INFORMCITI ENS

Sub/e"t to t'ese -u!de !nes -o ernment ma a"ead ert!sements or ur"'ase ad ert!s!n$ s a"e or

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t!me !n an med!um to !nform "!t!1ens about t'e!rr!$'ts and res ons!b! !t!es% about $o ernment

o !"!es% ro$rammes% ser !"es or !n!t!at! es% orabout dan$ers or r!s,s to ub !" 'ea t'% safet ort'e en !ronment.

B. THE FIVE PRINCIPLES OF CONTENTREGULATION'

'! e a"!n$ ad ert!sements or ur"'as!n$ad ert!s!n$ s a"e !n an med!a% t'e -o ernments'a be $u!ded b t'e fo o&!n$ r!n"! es% name =>

(1) A *+,- / C 4 / -o 5+ ,+6 -+ -oGo*+, + - ,+/4o / 5 6 - +/'

'! e !t !s t'e dut of t'e -o ernment toro !de t'e ub !" &!t' t!me % a""urate% " ear%

ob/e"t! e and "om ete !nformat!on about !tso !"!es% ro$rammes% ser !"es and !n!t!at! es

s!n"e t'e ub !" 'as a r!$'t to su"'!nformat!on% t'e "ontent of $o ernmentad ert!sements s'ou d be re e ant to t'e$o ernments "onst!tut!ona and e$a

ob !$at!ons as &e as t'e "!t!1ens r!$'ts andent!t ements.

(2) A *+,- /+ + - -+, 6/ /7o86 5+4,+/+ -+ o5 +:- *+$ ! ,

::+// 56+ +, 5+ +/ + -o ++--7+ o5 +:- *+/ o! -7+ : 4 '

(!) T'e mater!a s'a be resented !n a fa!rand ob/e"t! e manner and s'a be"a ab e of fu f! !n$ t'e !ntendedob/e"t! es@

(!!) -o ernment s'a e4er"!se due "aut!on&'! e de"!d!n$ t'e "ontent% a out% s!1eand des!$n of t'e messa$e !n" ud!n$ t'etar$et area and t'e "reat! e re:u!rementof t'e !ntended "ommun!"at!on !n order

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to ensure t'at t'e ma4!mum rea"' and!m a"t are a"'!e ed !n t'e most "osteffe"t! e manner@

(!!!) Content of ad ert!sement must enab e t'ere"! !ents of t'e !nformat!on tod!st!n$u!s' bet&een fa"ts and ana s!sand &'ere !nformat!on !s resented as afa"t% !t s'ou d be a""urate and er!f!ab e@

(! ) Pre>e4!st!n$ o !"!es% rodu"ts% ser !"esand !n!t!at! es s'ou d not be resented asne& un ess t'ere 'as been a substant!a"'an$e or mod!f!"at!on of su"' o !"!es%

rodu"ts or ser !"es@

( ) Content of ad ert!sement s'ou d ro !de!nformat!on !n a manner t'ata""ommodates s e"!a needs of d!sad anta$ed !nd! !dua s or $rou s!dent!f!ed as be!n$ &!t'!n t'e tar$etaud!en"e@

( !) Mu t! e formats ma be used to ensuree:ua a""ess@

( !!) E er effort s'a be made to re>test t'emater!a !n "ase of ar$e s"a e "am a!$n&!t' tar$et aud!en"es.

(3) A *+,- /+ + - -+, 6/ /7o86 5+ o5 +:- *+ o- ,+:-+ - 4,o o- 4o6 - : 6 -+,+/-/ o!

,86 4 ,-;'

(!) D!s a mater!a must be resented !nob/e"t! e an$ua$e and be free of o !t!"aar$ument or art!san stand o!nt=

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(!!) -o ernment ad ert!s!n$ s'a ma!nta!no !t!"a neutra !t and a o!d $ or!f!"at!on of o !t!"a ersona !t!es and ro/e"t!n$ a os!t! e

!m ress!on of t'e art !n o&er or a ne$at! e!m ress!on of art!es "r!t!"a of t'e$o ernment.

(!!!) Ad ert!sement mater!a s must not ?

(a) Ment!on t'e art !n $o ernment b name@(b) d!re"t atta", t'e !e&s or a"t!ons of

ot'ers !n o os!t!on@

(c) !n" ude art o !t!"a s mbo or o$o or

f a$@

(d) a!m to !nf uen"e ub !" su ort for ao !t!"a art % "and!date for e e"t!on@ or

(e) refer to !n, to t'e &ebs!tes of o !t!"aart!es or o !t!"!ans.

(! ) -o ernment ad ert!sement mater!a s s'ou da o!d 'oto$ra 's of o !t!"a eaders and !f !t!s fe t essent!a for effe"t! e -o ernmentmessa$!n$% on t'e 'oto$ra 's of t'ePres!dent0Pr!me M!nster or -o ernor0C'!ef M!n!ster s'ou d be used@

( ) -o ernment ad ert!sements s'a not be usedat atron!1!n$ med!a 'ouses or a!med atre"e! !n$ fa ourab e re ort!n$ for t'e art or

erson !n o&er

(") A *+,- /+ + - C 4 / 5+ 8/- ! + 8 +,-


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'en"e !t s'ou d be t'e o !" of $o ernments touse ub !" funds !n su"' a manner as toobta!n ma4!mum a ue for ta4 a ers mone @

(b) Ad ert!sement Cam a!$ns must be /ust!f!edand underta,en !n an eff!"!ent and"ost>effe"t! e manner@

(") T'e -o ernment s'a ?

(!) de"!de and announ"e before'and% a !st of ersona !t!es on &'ose b!rt' or deat'

ann! ersar!es% ad ert!sements "ou d bere eased e er ear and s e"!f &'!"'

M!n!str 0De artment "ou d re ease t'esame@

(!!) a o!d t'e !ssue of mu t! ead ert!sements b d!fferent de artmentsand PSUs of t'e same -o ernment !nCommemorat! e Ad ert!sements ands'a !ssue a s!n$ e ad ert!sement on @

(d) T'ou$' ad ert!s!n$ b $o ernments s'ou drema!n re$u ated a t'e t!me% !t !s art!"u ar !m ortant to s"ru u ous fo o& t'ese

r!n"! es before and dur!n$ t'e e e"t!ons. Asfar as oss!b e% dur!n$ t'e er!od r!or toe e"t!ons% on t'ose ad ert!sements re:u!redb a& (su"' as ub !" 'ea t' and safet ad !sor!es or /ob and "ontra"t ad ert!sements)a one be re eased b $o ernments@

(e) Ad ert!sement "am a!$ns s'ou d on be needbased@ and

(f) In "ase of ar$e o ume ad ert!sement"am a!$ns% ost>"am a!$n !m a"t assessment!s ne"essar to be !n" uded !n t'e ann!n$

ro"ess !tse f and s'a !dent!f t'e !nd!"atorsto measure su""ess &'en t'e "am a!$n 'asended.

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( ) Go*+, + - *+,- / 8/- :o 46; > -76+ 6 ,+?8 ,+ + -/ ! : 6 ,+ 86 - o / 4,o:+ 8,+/'

-o ernments s'a ensure t'at a Ad ert!sements

"om &!t'=>(!) re e ant a&s re$ard!n$ r! a" % !nte e"tua

ro ert r!$'ts% e e"t!on a&s and "onsumerrote"t!on a&s a art from a&s !n res e"t of

broad"ast!n$ and med!a@ and

(!!) "o r!$'t a&s and o&ners'! r!$'tsasso"!ated &!t' &or,s sub/e"t to "o r!$'t arefu res e"ted.

COMPLIANCE AND ENFORCEMENT'

(2) T'e -o ernment s'a a o!nt an Ombudsman &'os'a be an em!nent e4 ert !nde endent of t'e-o ernment to re"e! e "om a!nts of !o at!ons of -u!de !nes and to re"ommend a"t!on !n a""ordan"e&!t' t'e -u!de !nes.

(2) 5eads of $o ernment de artments and a$en"!ess'a be res ons!b e for ensur!n$ "om !an"e &!t't'ese -u!de !nes and s'a fo o& a ro"edure of "ert!f!"at!on of "om !an"e before ad ert!sementsare re eased to t'e med!a.

(*) As art of t'e erforman"e aud!t of t'eM!n!str 0De artment0A$en" ?

(a) t'ere s'a be se arate aud!t of t'e"om !an"e of Ad ert!sement -u!de !nes b t'eM!n!str 0De artment0A$en" "on"erned@ and

(b) T'e annua re ort of su"'m!n!str 0de artment0a$en" s'a ub !s' t'ef!nd!n$s of su"' aud!t and t'e mone s ent onad ert!s!n$.

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(3) T'e re$u ator bod!es of r!nt and e e"tron!" med!a&! be &!t'!n t'e!r o&ers to !m ose san"t!onsa$a!nst su"' med!a $rou s a"t!n$ a$a!nst t'ese-u!de !nes !n see,!n$ or obta!n!n$ $o ernmentad ert!sements.

. GENERAL =

(2) T'ese -u!de !nes s'a be !n add!t!on to andnot !n dero$at!on of t'e e4!st!n$ -u!de !nes&'!"' are !n a"e under t'e e4!st!n$Ad ert!sement Po !" of -o ernment.

(+) T'ese -u!de !nes are e:ua a !"ab e toState -o ernments and !ts a$en"!es. T'e State-o ernments s'a underta,e amendments to&'ate er o !"!es t'e 'a e !n t'!s re$ard andobser e t'e -u!de !nes str!"t !n etter ands !r!t.

(*) T'e Ombudsman ma re"ommend su!tab e"'an$es to t'e -u!de !nes to dea &!t' ne&"!r"umstan"es and s!tuat!ons.

(3) T'e -o ernment s'a ta,e ne"essar ste s to!n!t!ate ne"essar e$!s at!on on t'e sub/e"t%$! en !ts !m ortan"e for demo"ra" % 'umanr!$'ts and $ood $o ernan"e.9

W7+-7+, -7+ 8 +6 +/ ,+:o + + /7o86

:o + ::+4- :+ ! /o >7+-7+, -7+/ + /7o86 5+ + o4+, - *+ + !o,:+ 56+8 +, A,- :6+ 1"2 o! -7+ Co /- -8- o .

. In t'e ear !er order dated +* rd A r! % +723% t'!s Court%

after 'o d!n$ t'at reasonab eness and fa!rness "ons!stent &!t'

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Art!" e 23 of t'e Const!tut!on &ou d be t'e u t!mate test of a

State a"t! !t!es ro"eeded to 'o d t'at t'e de o ment of

ub !" funds !n an -o ernment a"t! !t &'!"' !s not

"onne"ted &!t' a ub !" ur ose &ou d /ust!f /ud!"!a

!nter ent!on. e &ou d !,e to sa somet'!n$ more.

Part IV of t'e Const!tut!on !s as mu"' a $u!d!n$ !$'t for

t'e ;ud!"!a or$an of t'e State as t'e E4e"ut! e and t'e

#e$!s at! e arms% a t'ree be!n$ !nte$ra arts of t'e 8State9

&!t'!n t'e mean!n$ of Art!" e 2+ of t'e Const!tut!on. *>3 A o !"

"erta!n "annot be a4ed for !ts a e$ed fa! ure to "om &!t'

an of t'e ro !s!ons of Part IV. Ne!t'er "an t'e Courts

"'arter a "ourse% mere on t'e stren$t' of t'e ro !s!ons of

t'e sa!d Part of t'e Const!tut!on% !f t'e effe"t t'ereof &ou d be

to a do&n a o !" . 5o&e er% !n a s!tuat!on &'ere t'e f!e d !s

o en and un"o ered b an $o ernment o !" % to $u!de and

"ontro e er da $o ernmenta a"t!on% sure % !n t'e e4er"!se of

/ur!sd!"t!on under Art!" e 23+ of t'e Const!tut!on% arameters

"an be a!d do&n b t'!s Court "ons!stent &!t' t'e ob/e"ts

enumerated b an of t'e ro !s!ons of Part IV. Su"' an

3 Naresh Shridhar ira!"ar # $rs. %s. S&a&e of aharash&ra # $rs. ' * 1967 SC 1+(1966) 3 SC* 744

4 ,esa-ananda hara&i Sri/ada a -ar %s. S&a&e of ,era a # nr. ' (1973) 4 SCC 225 (Para 1703)

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e4er"!se &ou d be natura t!me bound !.e. t! t'e #e$!s ature

or t'e E4e"ut! e% as t'e "ase ma be% ste s !n to fu f! !ts

"onst!tut!ona ro e and aut'or!t b fram!n$ an a ro r!ate

o !" .

@. Art!" e * and *G of t'e Const!tut!on en/o!n u on t'e

State a dut to "ons!stent endea our to a"'!e e so"!a and

e"onom!" /ust!"e to t'e teem!n$ m! !ons of t'e "ountr &'o

e en toda ! e be'!nd an art!f!"!a dra&n o ert !ne. 'at

"an be t'e surer &a !n t'e mar"' for&ard t'an b ensur!n$

a o!dan"e of un rodu"t! e e4 end!ture of ub !" funds. T'!s

!s 'o& &e !e& t'e resent matter and fee t'e ne"ess!t of

e4er"!se of our /ur!sd!"t!on under Art!" e 23+ of t'e

Const!tut!on to ro"eed furt'er.

9. It !s ne!t'er oss!b e nor feas!b e or e en ne"essar to tr

and en"om ass t'e m r!ad s!tuat!ons &'ere $o ernment

ad ert!sements are !ssued. Indeed% t'e s!tuat!ons and

"!r"umstan"es@ e ents and o""as!ons on &'!"' $o ernment

ad ert!sements are !ssued are !nf!n!te. Ne ert'e ess% an

attem t "an be made to arr! e at a broad "ate$or!1at!on for t'e

ur ose of an ! ustrat! e understand!n$.

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A *+,- /+ + -/ 7 76 7- :o 46+- o o! ! + 4+, o o! -7+ Go*+, + - / T+ 8,+

-o ernments at t'e Centre as &e as !n t'e States often

br!n$ out ad ert!sements on "om et!on of a number of da s%

mont's and ears of $o ernan"e. In su"' ad ert!sements% not

on t'e Ha"'!e ements are '!$' !$'ted e en t'e d!fferent tas,s

&'!"' are !n "ontem at!on are enumerated. 6 &a of

e4am e one of t'e o!nts '!$' !$'ted ma be su of

e e"tr!"!t to ea"' and e er ! a$e. T'ou$' t'e a"'!e ements

of a -o ernment s'ou d not be a matter of ub !"!t and rea

ou$'t to be a matter of er"e t!on to be fe t b t'e "!t!1ens on

t'e resu ts a"'!e ed% su"' ad ert!sements do 'a e t'e effe"t of

,ee !n$ t'e "!t!1ens !nformed of t'e $o ernment fun"t!on!n$

and t'erefore &ou d be erm!ss!b e.

A *+,- /+ + -/ o8 : 4,o +:-/'

On an e er da bas!s bot' t'e -o ernment at t'e Centre

as &e as !n d!fferent States !ssue ad ert!sements announ"!n$

e ents !,e a !n$ of t'e foundat!on of d!fferent de e o ment

ro/e"ts or t'e !nau$urat!on of ro/e"ts "om eted. In man of

su"' ad ert!sements t'e resu ts obta!ned !n t'e art!"u ar

1


17/33Page 17

f!e d "o ered b t'e ad ert!sement and t'e an0tar$ets for t'e

future are '!$' !$'ted. T'ou$' su"' ad ert!sements ma oo,

!,e a re ort "ard of t'e -o ernment t'ere !s an e ement of

!nformat! e "ontent !n su"' ad ert!sements !nasmu"' as

!nformat!on !s "on e ed to t'e "!t!1ens as re$ards $o ernment

ro$rammes% o !"!es and a"'!e ements.

A *+,- /+ + -/ //8+ o -7+ o:: / o o! 5 ,-7 + -7 *+,/ , +/ /8:7 o-7+, +*+ -/'

-o ernment ad ert!sements are !ssued !n t'e memor of

$reat ersona !t!es &'o o""u a s!$n!f!"ant a"e !n our

'!stor % su"' as% t'e fat'er of t'e Nat!on% Ma'atma -and'!.

'! e su"' ersons must "erta!n be remembered% &'at%

'o&e er% &ou d not be /ust!f!ed !s se era s!m! ar% !f not

!dent!"a % ad ert!sements !ssued b d!fferent De artments on

t'e same o""as!on as !s 'a en!n$ toda . One s!n$ e

ad ert!sement !ssued b a Centra A$en" s'ou d be enou$' to

"ommemorate t'e ann! ersar!es of t'e fe& a",no& ed$ed and

und!s uted ub !" f!$ures &'ose "ontr!but!on to t'e Nat!ona

Cause "annot ra!se an d!s ute or debate.

1


18/33Page 18

Ad ert!sement !ssued on "erta!n ot'er o""as!ons% for

!nstan"e% to mar, t'e "entenar ear of t'e Patna 5!$' Court

does not ser e an ur ose and must be a o!ded. Inst!tut!ons

need not be $ or!f!ed. T'e must earn $ or b "ontr!but!on

and &or,.

A *+,- /+ + -/ o8 : 4o6 : +/ 5+ +! -/!o, 4856 :'

A ad ert!sements t'at fa &!t'!n t'!s "ate$or &ou d be

!n ub !" !nterest. Su"' ad ert!sements% as for e4am e !n

res e"t of t'e Nat!ona Sa !n$s S"'emes !nform!n$ t'e ub !"

about benef!ts under t'e S"'eme% are ure !nformat!ona

and ma,e eo e a&are of t'e!r r!$'ts and ent!t ements.

S!m! ar % ad ert!sements !ssued to $enerate ub !" a&areness

&ou d a so be /ust!f!ed on t'e tou"'stone of ub !" !nterest.

6 &a of ! ustrat!on% an ad ert!sement !ssued b t'e M!n!str

of 5ea t' and Fam! e fare !nform!n$ t'e ub !" of

re entab e d!sease% safe$uards to be ta,en% a""!nat!on

ro$rammes for t'e "'! dren% et". &ou d be '!$' !nformat! e

and% t'erefore% /ust!f!ed.

1


19/33Page 19

10. A "onne"ted fa"et of t'e matter &'!"' "annot be !$nored

!s t'e o&er of t'e -o ernment to $! e0a&ard ad ert!sements

to se e"ted med!a 'ouses and t'e "on"om!tant !ssue of

freedom of ress. A&ard of ad ert!sements% natura % br!n$s

f!nan"!a benef!t to t'e art!"u ar med!a 'ouse0ne&s a er

$rou . Patron!1at!on of an art!"u ar med!a 'ouse(s) must be

a o!ded and a&ard of ad ert!sements must be on an e:ua

bas!s to a ne&s a ers &'o ma % 'o&e er% be "ate$or!1ed

de end!n$ u on t'e!r "!r"u at!on. T'e D.A.V.P. $u!de !nes do

not dea &!t' t'e sa!d as e"t of t'e matter and 'en"e t'e

ne"ess!t of !n"or orat!n$ t'e same !n t'e resent d!re"t!ons

to ensure t'e !nde enden"e% !m art!a !t and t'e neutra !t of

t'e fourt' estate &'!"' !s !ta to t'e $ro&t' and sustenan"e

of demo"ra" &! 'a e to be &e!$'ed and "ons!dered b us.

11. An ana s!s of t'e Draft -u!de !nes as re ared b t'e

Comm!ttee set u b t'!s Court !n t'e "ase ma no& be made.

T'e a !"ab! !t of t'ese -u!de !nes !s to a -o ernment

ad ert!sements ot'er t'an " ass!f!eds and !n a med!ums of

"ommun!"at!on% t'ereb !n" ud!n$ !nternet ad ert!s!n$. T'e

ob/e"t! e of t'ese -u!de !nes em 'as!1e t'e -o ernment s

1


20/33Page 20

res ons!b! !t to d!ssem!nate !nformat!on ne"essar for t'e

ub !" to ,no& about t'e o !"!es and ro$rammes of

-o ernment. It r!n"! a s e s out f! e r!n"! es to re$u ate

t'e "ontents of ad ert!sements% name %

!) ad ert!s!n$ "am a!$ns are to be re ated to

$o ernment res ons!b! !t!es%

!!) mater!a s s'ou d be resented !n an ob/e"t! e% fa!r

and a""ess!b e manner and des!$ned to meet

ob/e"t! es of t'e "am a!$n%

!!!) not d!re"ted at romot!n$ o !t!"a !nterests of a

Part %

! ) "am a!$ns must be /ust!f!ed and underta,en !n an

eff!"!ent and "ost>effe"t! e manner and

) ad ert!sements must "om &!t' e$a

re:u!rements and f!nan"!a re$u at!ons and

ro"edures.

T'e f! e broad Content Re$u at!ons "onta!ned !n t'e draft

$u!de !nes framed b t'e Comm!ttee are s!m! ar to t'e

ro !s!ons found !n t'e Austra !an $u!de !nes. 5o&e er%

2


21/33Page 21

under ea"' broad 'ead s e"!f!" re$u ator arameters 'a e

been !nd!"ated &'!"' seem to embod &'at &ou d be $ood

ra"t!"es !n t'e Ind!an "onte4t.

12. '! e under t'e f!rst 'ead t'e re:u!rement of "onform!t

of -o ernment ad ert!sements &!t' d!ssem!nat!on of

!nformat!on re at!n$ to -o ernment s "onst!tut!ona and e$a

ob !$at!ons and t'e "orres ond!n$ r!$'ts and ent!t ements of

"!t!1ens !s be!n$ stressed u on% under t'e se"ond 'ead

ob/e"t! e resentat!on of t'e mater!a s "onta!ned !n an

ad ert!sement bear!n$ !n m!nd t'e tar$et aud!en"e 'as been

em 'as!1ed. Under t'e t'!rd 'ead% t'e -u!de !nes state t'at

ad ert!sement mater!a s must not= (a) ment!on t'e art !n

$o ernment b !ts name% (b) atta", t'e !e&s or a"t!ons of

ot'er art!es !n o os!t!on% (") !n" ude an art s mbo or

o$o% (d) a!m to !nf uen"e ub !" su ort for a o !t!"a art or

a "and!date for e e"t!on or (e) refer or !n, to t'e &ebs!tes of

o !t!"a art!es or o !t!"!ans. It !s a so stated !n t'e

-u!de !nes t'at 'oto$ra 's of eaders s'ou d be a o!ded and

on t'e 'oto$ra 's of t'e Pres!dent0 Pr!me M!n!ster or

-o ernor0 C'!ef M!n!ster s'a be used for effe"t! e

2


22/33Page 22

$o ernment messa$!n$. T'e fourt' 'ead dea s &!t' "ost

effe"t! eness of an ad ert!sement "am a!$n and measures to

"ut do&n a o!dab e e4 enses. A some&'at restr!"ted ran$e of

ad ert!s!n$ a"t! !t on t'e e e of t'e e e"t!ons !s a so

re"ommended. A o!ntment of an Ombudsman to 'ear

"om a!nts of !o at!on of t'e norms and to su$$est

amendments t'ereto from t!me to t!me bes!de s e"!a

erforman"e aud!t b t'e "on"erned M!n!str!es !s a so

re"ommended.

13. T'e Un!on -o ernment and t'e State of 6!'ar 'a e f! ed

t'e!r res onses to t'e $u!de !nes su$$ested b t'e Comm!ttee.

T'e State of 6!'ar su$$ests t'at some of t'e re"ommendat!ons

of t'e Comm!ttee% deta! s of &'!"' need not be not!"ed% are

some&'at a$ue and re:u!re a more re"!se def!n!t!on or

mean!n$. T'e on as e"t of t'e su$$est!ons &'ere t'e State

'as res onded em 'at!"a !s &!t' re$ard to t'e

re"ommendat!on to "onf!ne t'e ub !"at!on of 'oto$ra 's of

t'e Pres!dent and t'e Pr!me M!n!ster of t'e "ountr and t'e

-o ernor and t'e C'!ef M!n!ster of t'e State. A""ord!n$ to t'e

State of 6!'ar su"' a restr!"t!on s'ou d not be !m osed.

2


23/33Page 23

1". T'e Un!on !n !ts res onse to t'e $u!de !nes of t'e

Comm!ttee 'as been more "ate$or!"a !n su$$est!n$ "erta!n

"'an$es as &e as de et!on of some of t'e re"ommendat!ons.

It &! % t'erefore% be ne"essar to s e"!f!"a not!"e t'e sa!d

ob/e"t!ons ra!sed b t'e Un!on.

Co -+ - o! -7+

R+:o + - o /

R+/4o /+ o! -7+ U o

(1) O5 +:- o! G8 +6 +/

(a) To re ent arb!trar useof ub !" funds for ad ert!s!n$b ub !" aut'or!t!es.

T'e mean!n$ of t'e &ord8arb!trar 9 a""ord!n$ to t'eUn!on needs to be mores e"!f!"a def!ned.

(b) To e4" ude t'e oss!b! !t of an m!suse of ub !" fundson ad ert!sement "am a!$n !norder to $a!n o !t!"a m! ea$eb t'e o !t!"aestab !s'ments.

A""ord!n$ to t'e Un!on t'ee4 ress!on 8 o !t!"am! ea$e9 !s !na ro r!ateand s'ou d be de eted.

(2) % P, : 46+/ o! Co -+ - R+ 86 - o

(a) C ause ( !!) under t'e + nd

o!nt of t'e r!n"! esre"ommended b t'eComm!ttee ? E er efforts'ou d be made to re>test t'emater!a !n "ase of ar$e s"a e"am a!$n &!t' tar$etaud!en"es.

A""ord!n$ to t'e Un!on t'!ss'ou d be done on &'ent'e same !s feas!b e and&'ene er ub !" !nterest sodemands.

2


24/33Page 24

(b) C ause (")(!) under t'e 3 t'

o!nt of t'e r!n"! es of Content Re$u at!on states t'at8T'e -o ernment s'a de"!deand announ"e before'and% a

!st of ersona !t!es on &'oseb!rt' or deat' ann! ersar!es%ad ert!sements "ou d bere eased e er ear ands e"!f &'!"'M!n!str 0De artment "ou dre ease t'e same.

A""ord!n$ to t'e Un!on t'e&ords 8de"!de and announ"ebefore'and9 ma be de etedas t'e same !s not feas!b es!n"e !ssuan"e of ad ert!sement de ends on a'ost of fa"tors !,ea a! ab! !t of funds% astm!nute "'an$es and t'e

r!or!t!es of t'e $o ernment.

(") C ause (d) of t'e 3 t' o!nt of

t'e r!n"! es of ContentRe$u at!on states t'at 8as faras oss!b e% dur!n$ t'e er!od

r!or to e e"t!ons% on t'osead ert!sements re:u!red b

a& (su"' as ub !" 'ea t' andsafet ad !sor!es or /ob and"ontra"t ad ert!sements) a onebe re eased b t'e

$o ernments.

A""ord!n$ to t'e Un!on

ad ert!sement t'at ser eub !" !nterest ma be!ssued at an o!nt of t!me.

(*) O 58 /

T'e su$$est!on of t'eComm!ttee &!t' re$ard toa o!ntment of t'eOmbudsman !s !n t'efo o&!n$ terms= 8T'e-o ernment s'a a o!nt anOmbudsman &'o s'a be anem!nent e4 ert !nde endent of t'e -o ernment to re"e! e"om a!nts of !o at!ons of -u!de !nes and to re"ommenda"t!on !n a""ordan"e &!t' t'e-u!de !nes.9

T'e Un!on ob/e"ts to t'esame and see,s de et!on of t'e sa!d re"ommendat!on asa so t'e re"ommendat!on&!t' re$ard to se arate

erforman"e aud!t of ea"'M!n!str and ub !"at!on of t'e resu t of su"' aud!t.A""ord!n$ to t'e Un!on t'e-o ernment 'as !nbu! tma"'!ner for redressa andfor aud!t ur oses.

2


25/33Page 25

1%. A "ons!derat!on of t'e ob/e"t!ons f! ed b t'e Un!on &ou d

$o to s'o& t'at t'e Un!on ser!ous d!sa$rees &!t' t'e

re"ommendat!ons of t'e Comm!ttee !n res e"t of t'e fo o&!n$

matters=

(2) restr!"ted ub !"at!on of 'oto$ra 's of t'e

-o ernment fun"t!onar!es and o !t!"a eaders

a on$&!t' t'e ad ert!sement et".

(+) a o!ntment of an Ombudsman

(*) t'e re"ommendat!on &!t' re$ard to erforman"e

aud!t b ea"' M!n!str .

(3) embar$o on ad ert!sements on t'e e e of t'e

e e"t!ons.

1&. T'e rest of t'e ob/e"t!ons are rea !n t'e nature of

su$$est!ons &'!"' 'a !n$ been "ons!dered &e are of t'e !e&

t'at !n"or orat!on of t'e sa!d su$$est!ons made b t'e Un!on

or ot'er&!se &ou d not ma,e an substant!a d!fferen"e to t'e

!m a"t and effe"t of t'e sa!d re"ommendat!ons. It !s t'e

re"ommendat!ons &!t' re$ard to t'e ub !"at!on of

'oto$ra 's@ a o!ntment of Ombudsman@ "arr !n$ out

!nde endent aud!t and embar$o on ad ert!sements dur!n$

2


26/33Page 26

e e"t!on t!me t'at &! 'a e to be s e"!f!"a dea t &!t' !n some

deta! s.

1 . T'e rema!n!n$ re"ommendat!ons of t'e Comm!ttee

a ear to be "om re'ens! e and based on an ana t!"a

a roa"' of t'e best ra"t!"es re a! !n$ !n ot'er /ur!sd!"t!ons.

T'e sa!d re"ommendat!ons% !n our "ons!dered !e&% &ou d

ser e ub !" !nterest b enab !n$ d!ssem!nat!on of !nformat!on

and s read!n$ a&areness amon$st t'e "!t!1ens not on of t'e

$o ernment o !"!es@ a"'!e ements made and tar$ets to be

rea"'ed but a so t'e r!$'ts and ent!t ements of t'e "!t!1ens

!n" ud!n$ t'e a a! ab! !t of a 'ost of &e fare measures. T'e

sa!d re"ommendat!ons% t'erefore% "ommend to t'e Court for

a""e tan"e and are a""ord!n$ a""e ted.

1@. At t'!s /un"ture &e ma er br!ef dea &!t' t'e &!t'

t'e s!tuat!on re a! !n$ !n ot'er /ur!sd!"t!ons a"ross t'e $ obe.

'! e% undoubted t'ere "an be no b !nd ad'eren"e to t'e

ra"t!"es fo o&ed !n ot'er /ur!sd!"t!ons as &'at ma be

a ro r!ate to anot'er "ountr ma not be !dea !n t'e Ind!an

"onte4t% t'e "orre"t a roa"' &! be to d!s"ern some of t'e

best ra"t!"es re a! !n$ !n su"' /ur!sd!"t!ons and t'ereafter to

test t'e re e an"e of t'e same to our o&n "ountr . T'ou$' t'e

2


27/33Page 27

re"!ta s "onta!ned !n t'e Re ort of t'e Comm!ttee do ment!on a

"ons!derat!on of su"' $ood ra"t!"es re a! !n$ !n ot'er

/ur!sd!"t!ons t'ere !s 'o&e er no d!s"uss!on or e en an

!nd!"at!on of t'e re"!se "ontents of t'e ra"t!"es t'at &ere

found b t'e Comm!ttee to be !n e4!sten"e !n ot'er "ountr!es.

It 'as t'erefore be"ome ne"essar for us to dea &!t' t'e

matter t'ou$' er br!ef . In t'!s re$ard &e ma usefu %

t'ou$' ! ustrat! e % ma,e a referen"e to "erta!n ra"t!"es

re a! !n$ !n Canada% Un!ted

Austra !a.

19. Insofar as Canada(Ontar!o) !s "on"erned% !t a ears t'at

t'e ob/e"t of !ssu!n$ a $o ernment ad ert!sement !s = (!) to

!nform t'e ub !" of "urrent or ro osed $o ernment o !"!es%

ro$rams or ser !"es a a! ab e to t'em@ (!!) to !nform t'e ub !"

of t'e!r r!$'ts and res ons!b! !t!es under t'e a& and (!!!) to

en"oura$e or d!s"oura$e s e"!f!" so"!a be'a !our !n ub !"

!nterest. Su"' ad ert!sements are not to !n" ude t'e name%

o!"e or !ma$e of an fun"t!onar of t'e State and t'e r!mar

ob/e"t! e of an ad ert!sement ou$'t not to be to foster a

os!t! e !m ress!on of t'e ru !n$ $o ernment or a ne$at! e

2


28/33Page 28

!m ress!on of an erson% $rou or art "r!t!"a of t'e

$o ernment.

20. In some of t'e fore!$n /ur!sd!"t!ons t'ere !s a me"'an!sm

for re !e& of ad ert!sements on f!4ed arameters e en before

t'e are ub !s'ed and ub !"at!on0!ssuan"e t'ereof on

u on ass!n$ of t'e re:u!red test. In Austra !a and Un!ted

Austra !an do ars re:u!re to under$o a "ost benef!t ana s!s

&'ere!n t'e best o t!ons to a"'!e e t'e !ntended ob/e"t! e of

t'e "am a!$n 'as to be determ!ned before aun"'!n$ t'e

same.

21. T'e $ood ra"t!"es ado ted !n ot'er /ur!sd!"t!ons as

not!"ed abo e do f!nd ade:uate ref e"t!on !n t'e

re"ommendat!ons of t'e Comm!ttee &'!"' furt'er fort!f our

"on !"t!on to ado t t'e same.

22. T'!s &! re:u!re t'e Court to "ons!der t'e d!fferent

as e"ts of a $o ernment ad ert!sement "am a!$n '!$' !$'ted

ear !er on &'!"' &e 'a e reser ed our "omments. T'e f!rst !s

2


29/33Page 29

&!t' re$ard to ub !"at!on of 'oto$ra 's of fun"t!onar!es of

t'e State and o !t!"a eaders a on&!t' t'e ad ert!sement

!ssued. T'ere "an be no manner of doubt t'at one

$o ernment ad ert!sement or t'e ot'er "o!n"!d!n$ &!t' some

e ent or o""as!on !s ub !s'ed ra"t!"a e er da .

Pub !"at!on of t'e 'oto$ra ' of an !nd! !dua be a State or

art fun"t!onar not on 'as t'e tenden" of asso"!at!n$ t'at

art!"u ar !nd! !dua &!t' e!t'er t'e a"'!e ement(s) sou$'t to

be '!$' !$'ted or be!n$ t'e ar"'!te"t of t'e benef!ts !n res e"t

of &'!"' !nformat!on !s sou$'t to be er"o ated.

A ternat! e % ro$rammes0tar$ets for t'e future as ad ert!sed

"arr t'e !m ress!on of be!n$ asso"!ated &!t' t'e art!"u ar

!nd! !dua (s). P'oto$ra 's% t'erefore% 'a e t'e otent!a of

de e o !n$ t'e ersona !t "u t and t'e !ma$e of a one or a fe&

!nd! !dua s &'!"' !s a d!re"t ant!t'es!s of demo"rat!"

fun"t!on!n$.

23. T'e e$!t!mate and erm!ss!b e ob/e"t of an

ad ert!sement% as ear !er d!s"ussed% "an a &a s be a"'!e ed

&!t'out ub !"at!on of t'e 'oto$ra ' of an art!"u ar

fun"t!onar e!t'er !n t'e State of a o !t!"a art . e are%

2


30/33Page 30

t'erefore% of t'e !e& t'at !n de arture to t'e !e&s of t'e

Comm!ttee &'!"' re"ommended erm!ss!b! !t of ub !"at!on

of t'e 'oto$ra 's of t'e Pres!dent and Pr!me M!n!ster of t'e

"ountr and -o ernor or C'!ef M!n!ster of t'e State a on$&!t'

t'e ad ert!sements% t'ere s'ou d be an e4"e t!on on !n t'e

"ase of t'e Pres!dent% Pr!me M!n!ster and C'!ef ;ust!"e of t'e

"ountr &'o ma t'emse es de"!de t'e :uest!on.

Ad ert!sements !ssued to "ommemorate t'e ann! ersar!es of

a",no& ed$ed ersona !t!es !,e t'e fat'er of t'e nat!on &ou d

of "ourse "arr t'e 'oto$ra ' of t'e de arted eader.

2". Insofar as t'e re"ommendat!on &!t' re$ard to t'e

a o!ntment of Ombudsman !s "on"erned% &e are of t'e !e&

t'at for !ron!n$ out t'e "reases t'at are bound to s'o& from

t!me to t!me !n t'e !m ementat!on of t'e resent d!re"t!ons

and to o ersee su"' !m ementat!on t'e $o ernment s'ou d

"onst!tute a t'ree member bod "ons!st!n$ of ersons &!t'

un!m ea"'ab e neutra !t and !m art!a !t and &'o 'a e

e4"e ed !n t'e!r res e"t! e f!e ds. e "ou d 'a e but &e

refra!n from nam!n$ t'e s e"!f!" ersons and ea e t'e sa!d

e4er"!se to be erformed b t'e Un!on -o ernment.

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2%. Insofar as erforman"e0s e"!a aud!t !s "on"erned% &e do

not fee t'e ne"ess!t of an su"' s e"!a aud!t !nasmu"' as

t'e ma"'!ner a a! ab e !s ade:uate to ensure due

erforman"e as &e as a""ountab! !t and ro er ut! !1at!on of

ub !" mone .

2&. If -o ernment ad ert!sements ad'ere to t'e ob/e"ts and

arameters ment!oned abo e &e do not fee t'e ne"ess!t of

!m os!n$ a s e"!a "urb on $o ernment ad ert!sements on t'e

e e of t'e e e"t!ons% as su$$ested b t'e Comm!ttee.

2 . In an ear !er art of t'e resent order &e 'ad !nd!"ated

t'e o&er of t'e urse t'at -o ernment ad ert!sements

!n ar!ab !n o e. Need ess to sa t'e "on"e ts of fa!rness

and e en d!s ensat!on to a med!a0 ub !s'!n$ 'ouses &!

'a e to be ma!nta!ned b t'e -o ernment be !t at t'e Centre

or t'e States.

2@. e " ose t'e matters on t'e aforesa!d note b a ro !n$

and ado t!n$ t'e re"ommendat!ons of t'e Comm!ttee e4"e t

&'at 'as been s e"!f!"a !nd!"ated abo e &!t' re$ard to

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(2) ub !"at!on of 'oto$ra 's of t'e -o ernment

fun"t!onar!es and o !t!"a eaders a on$&!t' t'e

ad ert!sement(s).

(+) a o!ntment of an Ombudsman

(*) t'e re"ommendat!on &!t' re$ard to erforman"e

aud!t b ea"' M!n!str .

(3) embar$o on ad ert!sements on t'e e e of t'e

e e"t!ons.

29. e a so ma,e !t " ear t'at t'e resent d!re"t!ons !ssued

under Art!" e 23+ of t'e Const!tut!on "annot be "om re'ens! e

and t'ere are se era as e"ts of t'e matter &'!"' ma 'a e

es"a ed our attent!on at t'!s sta$e. In t'!s re$ard% &e &ou d

!,e to " ar!f t'at !t !s not t'e !ntent!on of t'e Court to

attem t to a do&n !nfa !b e and a "om re'ens! e d!re"t!ons

to "o er t'e !ssue at 'and. T'e $a s% !f an % &e are "onf!dent

&ou d be f! ed u b t'e e4e"ut! e arm of t'e $o ernment

!tse f !nasmu"' as t'e atta!nment of "onst!tut!ona $oa s and

a ues ens'r!ned !n Part IV of t'e Const!tut!on !s t'e "on/o!nt

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