SYNOPSIS AND LIST OF DATES

05.08.1976 The Foreign Contribution (Regulation) Act,

1976 was enacted by the Parliament to serve

as a shield in legislative armoury, in

conjunction with other laws like the Foreign

Exchange Regulation Act, 1973, and insulate

the sensitive areas of national life like -

journalism, judiciary and politics from

extraneous influences from outside the country.

It imposed prohibition on candidates for

election from accepting foreign contri bution

from foreign sources.

26.09.2010 Foreign Contribution (Regulation) Act, 2010

was enacted by the Parliament. As per Section

54 (1) of this act, the earlier FCRA, 1976 was

repealed. The definition of ‘Foreign Source

remained largely unchanged. Any liability

incurred under the FCRA 1976 would continue

under FCRA 2010.

Jan 2013 The petitioners herein filed Writ Petition (Civil)

No. 131 of 2013 in the Hon’ble Delhi High

Court titled Association for Democratic

Reforms vs Union of India & Ors., which drew

 attention to the donations received by political

parties from foreign sources.

28.03.2014 The Hon’ble Delhi High Court held the two

major National political parties guilty of taking

foreign funding and directed the Central

Government and Election Commission of India

(ECI) to take action against the two national

parties within six months.

14.05.2016 Finance Bill, 2016, which was passed as a

Money Bill, received the assent of the

President on the 14th May, 2016 and Became

Finance Act, 2016. The Finance Act brought in

retrospective amendment to the FCRA, 2010

from to change the definition of what

constitutes a foreign company in such a way

that key beneficiaries of UK-based Vedanta

group — the BJP and Congress — would not

face legal scrutiny for donations, with effect

from 26.09.2010.

29.11.2016 The SLPs filed against the Delhi High Court

judgment by the two political parties were

dismissed as withdrawn by this Hon’ble Court.

21.03.2017 The Hon’ble Delhi High Court issued contempt

notice to Union of India on a petition filed by

 the petitioners (Contempt Petition (C) 233 of

2017). The petitioners had argued that the

amendment in FCRA 2010 with effect from

26.09.2010 would not come to the aid of the

two political parties. The High Court

specifically recorded the contention of the

petitioners that amendment made by Finance

Act 2016 would not help the two political

parties.

03.10.2017 This Hon’ble Court issued notice on a PIL filed

by the petitioner No. 1 herein, being Writ

Petition (Civil) No. 880 of 2017, challenging the

provisions of Finance Act, 2016 and Finance

Act, 2017 including the amendment to FCRA

2010.

09.10.2017 Hon’ble Delhi High Court on an application

filed by Central Government for extension of

time, gave the Government time of 6 months

from the date of the order, as a last

opportunity, to take action against the two

political parties for violations of FCRA.

03.02.2018 Letter was sent by Petitioner No.2 to the

Respondents, Prime Minister office and various

other government offices expressing his

anguish on receiving news reports that vide

Finance Bill of 2018, retrospective amendment

 was being brought to the Foreign Contribution

Regulation Act (FCRA), retrospectively from

1976 to condone illegalities committed by the

political parties mentioned above. The

Petitioner No.2 also requested the

Respondents to desist from enacting such

amendment with retrospective effect.

14.03.2018 Lok Sabha passed the Finance Bill 2018

whereby a retrospective amendment was made

to the Finance Act of 2016. The amendment

added the applicability of the proviso added by

the Finance Act, 2016 retrospectively from

1976, instead of 2010.

21.03.2018 The Petitioner No.2 sent another letter to the

Respondents, Prime Minister Office and

various other government offices expressing

his displeasure over passing of the Finance

Bill, 2018 by the Lok Sabha allowing the

retrospective amendment mentioned above.

30.03.2018 The Ministry of Finance notified the Finance

Act, 2018 amending FCRA 2010 with effect

from 1976.

.04.2018 Hence, the present Writ Petition.

 IN THE SUPREME COURT OF INDIA

(CIVIL ORIGINAL JURISDICTION)

Writ Petition (Civil) No. .................... Of 2018

PUBLIC INTEREST LITIGATION

1. A SSOCIATION FOR D EMOCRATIC R EFORMS

T HROUGH I TS F OUNDER -T RUSTEE
P ROF . J AGDEEP S. C HHOKAR
T-95, 2 N D F LOOR , C.L H OUSE ,
G AUTAM N AGAR ,
N EW D ELHI -110049
PH: 09999620944
E MAIL : JCHHOKAR @ GMAIL . COM ... P ETITIONER N O . 1

2. E.A.S.S ARMA
14 - 40 - 4/1 G OKHALE R OAD
M AHARANIPETA
V ISAKHAPATNAM - 530002
E MAIL : EASSARMA @ GMAIL .C OM

PH: 09866021646 …. P ETITIONER N O . 2

VERSUS

1. U NION OF I NDIA

T HROUGH ITS S ECRETARY

M INISTRY OF H OME
N ORTH B LOCK
C ENTRAL S ECRETARIAT
N EW D ELHI -110001 ...T HE R ESPONDENT

To,
THE HON’BLE CHIEF JUSTICE OF INDIA AND HIS
COMPANION JUDGES OF THE HON’BLE SUPREME COURT
OF INDIA
The Humble Petition of
The Petitioners above-named
 MOST RESPECTFULLY SHOWETH:

1. The Petitioners are filing this writ petition under Article 32 of

the Constitution of India, in public interest, challenging the

amendments made in the Foreign Contribution Regulation Act,

2010 through the Finance Act, 2016 and Finance Act, 2018,

which has been passed as a Money Bill with retrospective

effect from the year 1976. The said amendments have been

made in an attempt to overturn the judgment passed by the

Delhi High Court holding the two major political parties the

BJP and the Congress guilty of taking foreign funding, against

which the SLPs were dismissed by this Hon’ble Court. The

said amendments have opened doors to unlimited political

donations from foreign companies and thereby legitimizing

financial contributions received from foreign sources. The

same is also against the principle of separation of powers

since it has overruled the Delhi High Court judgment (against

which SLPs were dismissed as withdrawn). The Delhi High

Court had held the two major national political parties (BJP

and Congress) guilty of taking foreign funding in violation of

FCRA 1976. It is submitted that amendment made in FCRA

2010 vide the Finance Act 2016 is already under challenge

before this Hon’ble Court vide WPC 880 of 2017 in which this

Hon’ble Court has issued notice.

a) Petitioner No. 1 herein is Association for Democratic

Reforms (ADR), a Trust registered with Registration No.

F/9/9339/AHMEDABAD. ADR has been at the forefront of

electoral reforms in the country for the last 14 years from

wide-ranging activities including advocacy for transparent

functioning of political parties, conducting a detailed analysis

of candidates in every election, and researching the financial

records of political parties including their income-tax returns.

It was on ADR’s petition that this Hon’ble Court ordered all

election candidates to declare their criminal records and

financial assets. The Organization is registered as Public

Trust under Mumbai Public Trust Act, 1950. Under the

practice followed by ADR, the Founder-Trustee Prof. Jagdeep

S Chhokar is authorised to institute proceedings on behalf of

petitioner no. 1. The Registration Certificate of Petitioner No.1

and authority letter are being filed along with the

vakalatnama. The petitioner organization’s annual income is

Rs. 75,27,929 (FY/13-14) (PAN No.AAAAA2503P). Petitioner

No. 1 not being an individual does not have a National UID

number.

Petitioner No.2 herein is Mr. E A S Sarma, former Secretary

to the Government of India. He has worked extensively on

violations of FCRA by the two political parties . He was a co-

petitioner before the Delhi High Court in WPC 131 of 2013 in

which judgment against the two political parties was passed.

His UID number is 853422610935. His annual income is about

15 lakhs per year. His PAN number is AABPE1384L.

 The petitioners have no personal interest, or private/oblique motive in

filing the instant petition. There is no civil, criminal, revenue or any

litigation involving the petitioners, which has or could have a legal nexus

with the issues involved in the PIL.

The Petitioner No. 2 has written two letters dated 03.02.2018 and

21.03.2018 to the Respondent requesting not to bring in retrospective

amendment in FCRA. A copy of letter dated 03.02.2018 and 21.03.2018

sent by Petitioner No. 2 to the Respondent are annexed as Annexure

P1 (Pg ___________) and Annexure P2 (Pg ____________)

respectively. But no response has been received to these letters and

the respondent has notified the Finance Act 2018 amending FCRA with

effect from 1976.

2. That the Petitioners submit that the Finance Act, 2016 has

retrospectively amended the Foreign Contribution Regulation

Act (FCRA), 2010 with effect from 2010, to allow foreign

companies with subsidiaries in India to fund political parties in

India, effectively, exposing the Indian politics and democracy

to corporate lobbyists who may want to further their agenda.

The amendment to the FCRA, 2010 is already under challenge

in the Writ Petition filed by Petitioner No.1 viz Writ Petition

(Civil) 880 of 2017 on which vide order dated 03.10.2017 this

Hon’ble Court issued notice to the Respondents. Since the

said amendment to FCRA 2010 did not completely fulfil the

ulterior design of the political parties which dominate

Parliament, therefore, by way of Finance Act 2018, the

 amendment made in FCRA 2010 has been given effect from

1976 instead of 2010.

Brief Background

3. That in 1976, the Foreign Contribution (Regulation) Act, 1976

(hereinafter referred to as “ FCRA, 1976”) was enacted by the

Parliament to serve as a shield in legislative armoury, in

conjunction with other laws like the Foreign Exchange

Regulation Act, 1973, and insulate the sensitive areas of

national life like - journalism, judiciary and politics from

extraneous influences stemming from beyond our borders. It

imposed prohibition on candidates for election from accepting

foreign contribution from foreign sources. Section (e) of the

Act defined ‘Foreign Source’ which included:

“(i) the government of any foreign country or territory and

any agency of such government,
(ii) any international agency, not being the United Nations
or specialized agencies, the World Bank, International
Monetary Fund or such other agency as the Central
Government may, by notification in the Official Gazette,
specify in this behalf,
(iii) a foreign company within the meaning of section 591 of
the Companies Act, 1956 (1 of 1956), and also includes
(a) a company which is a subsidiary of a foreign company,
and
(b) a multi-national corporation within the meaning of this
Act.
(iv) a corporation, not being a foreign company, incorporated
in a foreign country or territory,
(v) a multi-national corporation within the meaning of this
Act,
 (vi) a company within the meaning of the Companies Act,
1956 (1 of 1956), if more than one -half of the nominal
value of its share capital is held, either singly or in the
aggregate, by one or more of the following, namely, -
(a) government of a foreign country or territory,
(b) citizens of a foreign country or territory,
(c) corporations incorporated in a foreign country or
territory,
(d) trusts, societies or other associations of individuals
(whether incorporatedor not), formed or registered in a
foreign country or territory.”

The main reason behind enacting the said law was to prevent

monetary aid/donations to gain dominance so as to interfere

with the internal affairs of the country , so as to safeguard rule

of law and ensure protection of fundamental rights guaranteed

under Article 14 and 21.

4. That Foreign Contribution (Regulation) Act, 2010

hereinafter referred to as (“FCRA, 2010”) was enacted by

the Parliament. Through Section 54 (1) this act repealed

the earlier FCRA, 1976. However, the definition of ‘Foreign

Source remained unchanged.

5. That on 28.03.2014, the Hon’ble High Court of Delhi in Writ

Petition (Civil) No. 131 of 2013 filed by the petitioners

herein held Congress and BJP guilty of violating FCRA

1976. The petition highlighted donations made to the

political parties i.e. BJP and Congress by M/s Sterlite

Industries Ltd. And M/s Sesa Goa Ltd., companies

 registered in India under the Companies Act, 1956 and

more than 50% of their issued share capital w as held by

Vedanta Resources PLC, a company incorporated under

the Companies Act, 1985 and registered in England and

Wales with registration No.04740415. The Hon’ble High

Court held the two major National political parties guilty of

taking foreign funding and directed the Ministry of Home

Affairs (MHA) and Election Commission of India (ECI) to

take action against the two national parties within six

months. Relevant Para has been reproduced below:

“The second direction would concern the donations made

to political parties by not only St erlite and Sesa but
other similarly situated companies/corporations.
Respondents No.1 and 2 would relook and reappraise
the receipts of the political parties and would identify
foreign contributions received by foreign sources as per
law declared by us hereinabove and would take action
as contemplated by law. The two directions shall be
complied within a period of six months from date of
receipt of certified copy of the present decision. ”

The Hon’ble High Court gave six months to the respondents

comply with the directions issued. It has been more than four

years now and till date, none of the directions have been

complied with. The judgment passed by the Hon’ble High

Court dated 28.03.2014 in WPC 131 of 2013 is annexed as

Annexure P3 (Pg _________).

6. That Finance Bill, 2016 was introduced in Lok Sabha as Bill

No. 18 of 2016 and passed on the 5th May, 2016 to give

effect to the financial proposals of the Union Government for

the Financial Year 2016-17 having received the assent of the

President on the 14th May, 2016. In 2016, for the first time

the Finance Bill was used to bring amendments to the FCRA,

2010 to change the definition of what constitutes a foreign

company in such a way that key beneficiar ies of UK-based

Vedanta group, the BJP and Congress, would not face legal

scrutiny for donations received from 2010 onward. Vide the

said Act, amendment was brought to the definition of ‘Foreign

Source’ in the FCRA, 2010 whereby a proviso was added to

the definition which has been reproduced be low:

“Provided that where the nominal value of share capital is

within the limits specified for foreign investment under the

Foreign Exchange Management Act, 1999, or the rules or

regulations made thereunder, then, notwithstanding the

nominal value of share capital of a company being more

than one-half of such value at the time of making the

contribution, such company shall not be a foreign

source;”.

7. This didn’t have any effect on the guilt already recognised on

the part of BJP and INC decided in the WPC 131 of 2013.

Since the decision adjudicated by the Hon’ble High Court of

Delhi was taken after comparing with the provisions of FCRA,

1976 since the donations in question given to the political

 parties were given in the year 2009. The relevant page of the

Finance Act, 2016 is annexed as Annexure P4 (Pg

_________).

8. That against the Order dated 28.03.2014 passed by the

Hon’ble High Court of Delhi, appeal was filed before this

Hon’ble Court. Vide order dated 29.11.2016, this Hon’ble

Court dismissed the SLPs as withdrawn by both the parties as

they conjointly told this Hon’ble Court about their decision to

withdraw the SLPs they had filed in the year 2014. Copy of

the order dated 29.11.2016 passed by this Hon’ble Court in

SLP (C) 18190 of 2014 and SLP(C) 32626 of 2014 is annexed

as Annexure P5 (Pg _________).

9. That a letter dated 03.02.2018 was sent by Petitioner No.2 to

the Respondents, Prime Minister office and various other

government offices expressing his anguish on receiving news

reports that vide Finance Bill of 2018, retrospective

amendment was being brought FCRA with effect from 1976 to

condone illegalities committed by the political parties

mentioned above. The Petitioner No. 2 also requested the

Respondents to desist from enacting such amendment with

retrospective effect. Through his letter Petitioner expressed

his concern over the foul play which might be adopted by the

legislature. There was no reply received from any of the

recipients of the letter.

10. That on 14.03.2018 the Lok Sabha passed the Finance

Bill 2018 whereby a retrospective amendment was made to

the Finance Act of 2016. The amendment added the

applicability of the proviso added by the Finance Act, 2016

with effect from 1976. A copy of the relevant page of the

Finance Act, 2018 is annexed as Annexure P6 (Pg

_________). It has been reproduced below for better

understanding.

“PART XIX
AMENDMENT TO THE FINANCE ACT, 2016
217. In the Finance Act, 2016, in section 236,
in the opening paragraph, for the words,
figures and letters “the 26th September,
2010”, the words, figures and letters “the 5th
August, 1976” shall be substituted.”

11. It is important to be mentioned here that the Legislature

vide Section 54(1) of FCRA, 2010 had already repealed

FCRA, 1976. Through Finance Act, 2016 retrospective

amendment was added to the definition of ‘Financial Source’

under Section 2 in FCRA, 2010. The said amendment is

already under challenge before this Hon’ble Court. Extending

the scope of the same challenged amendment to the act which

was repealed eight long years ago unambiguously show the

desperation with which the Respondents are trying to condone

their guilt. By misusing the legislative powers vested in them,

the political parties have moulded their usage for fulfilling

their own personal motives than using them for the betterment

of the people and improving their s tandard of living. By

 extending the applicability of a retrospective amendment from

1976, the legislature has tried to breach the basic stru cture of

Constitution. It is a settled principle of law that it is well within

the powers of the Legislature to remedy the defect or flaw

which exists in the legislation. If such a defect or flaw is

brought within the notice of Judiciary and if the decisio n is

held against such legislation, then the Legisla ture has the

duty to rectify it. But the Legislature cannot pass a

retrospective amendment so as to nullify a judgement passed

by any court. The decision of Hon’ble High Court was based

on the law existing at that time and which very well

recognised the guilt on the part of BJP and INC for accepting

donations from the Indian Companies which were subsidiaries

of a Foreign Company. The Legislature by taking this extra

ordinary measure of extending the applicability of the

amendment introduced in the Finance Act, 2016 with effect

from 1976 by Finance Act, 2018 has violated the principle of

separation of powers.

12. In a recent decision adjudicated by this Hon’ble Court in

the case titled State of Karnataka and Ors. v. The Karnataka

Pawn Brokers Assn. and Ors. dated 16.03.2018, it was held

that:

“22. On analysis of the aforesaid judgments it

can be said that the Legislature has the power
to enact validating laws including the power to
amend laws with retrospective effect.
However, this can be done to remove causes
 of invalidity. When such a law is passed the
Legislature basically corrects the errors which
have been pointed out in a judicial
pronouncement. Resultantly, it amends the
law, by removing the mistakes committed in
the earlier legislation, the effect of which is to
remove the basis and foundation of the
judgment. If this is done, the same does not
amount to statutory overruling.
23. However, the Legislature cannot set at
naught the judgments which have been
pronounced by amending the law not for the
purpose of making corrections or removing
anomalies but to bring in new provisions
which did not exist earlier. The Legislature
may have the power to remove the basis or
foundation of the judicial pronouncement but
the Legislature cannot overturn or set aside
the judgment, that too retrospectivel y by
introducing a new provision. The legislature is
bound by the mandamus issued by the Court.
A judicial pronouncement is always binding
unless the very fundamentals on which it is
based are altered and the decision could not
have been given in the altered circumstances.
The Legislature cannot, by way of introducing
an amendment, overturn a judicial
pronouncement and declare it to be wrong or
a nullity. What the Legislature can do is to
amend the provisions of the statute to remove
the basis of the judgment.”
This is exactly what the Legislature has done. By introducing

the amendment the Legislature has overturned the decision of

the Hon’ble High Court of Delhi against which SLPs were

dismissed by this Hon’ble Court. There was no anomalies

pointed in the Judgment and it also cannot be said that the

judgment was based on an incorrect understanding of law. So

the question to rectify anything or to remedy the situation

does not arise at all. The Legislature has brought in a new

provision by way of amendment so that all its actions which

were earlier illegal as per FCRA, 1976 can be legalized.

13. That on 21.03.2018 the Petitioner No.2 sent another

letter to the same recipients to whom the earlier letter dated

03.02.2018 expressing his displeasure over passing of the

Finance Bill, 2018 by the Lok Sabha allowing the

retrospective amendment mentioned above. The Petitioner

also produced a relevant extract from the website of the

Norwegian Sovereign Wealth Fund managed by that country's

Finance Ministry which had made the following observation:

“On the 13th of September 2013, the Ministry

of Finance received a recommendation from
the Council of Ethics to exclude the company
Sesa Sterlite from the GPFG. The
recommendation builds on an earlier
recommendation to exclude the company
Vedanta Resources Ltd. (Vedanta) and two of
its subsidiaries, which operate in India. The
Ministry followed the Council's
recommendation to exclude Vedanta and its
two subsidiaries in 2007. Sesa Sterlite is a
newly established subsidiary of Vedanta. The
Council's assessment is that the relevant
operations in India, which are currently run
through the company Sesa Sterlite, present an
unacceptable risk of environmental damage
 and serious violations of human rights. The
Council has regularly updated its assessment
of Vedanta and the basis for exclusion is still
considered to be present. The Ministry of
Finance, in accordance with the Council's
recommendation, has decided to exclude Sesa
Sterlite from the Fund's investment universe,
as well as to maintain the exclusion of
Vedanta.”

14. It is important to note that the backdrop of the

amendment is the contempt petition filed in the Delhi

High Court by the petitioners after the dismissal of the

SLPs filed by the two political parties. The Hon’ble Delhi

High Court on 21.03.2017 had issued contempt notice to

Union of India on a petition filed by the petitioners

(Contempt Petition (C) 233 of 2017). The petitioners had

argued that the amendment in FCRA 2010 with effect

from 26.09.2010 would not come to the aid of the two

political parties. The High Court specifically recorded the

contention of the petitioners that amendment made by

Finance Act 2016 would not help the two political parties.

A copy of the Delhi High Court order dated 21.03.2017

passed in Contempt Petition (C) 233 of 2017 is annexed

as Annexure P7 (Pg _________).

15. Faced with the contempt, the Central Government

had filed an application for extension of time for

complying with the judgment. Hon’ble Delhi High Court,

 vide order dated 09.10.2017, gave the Government time

of 6 months from the date of the order, as a last

opportunity, to take action against the two political

parties for violations of FCRA. A copy of the Delhi High

Court order dated 09.10.2017 passed in WPC 131 of

2017 is annexed as Annexure P8 (Pg _________).

16. That on 30.03.2018 the Respondent notified the

Finance Act, 2018 applicable. The amendments

introduced through the new Finance Act, 2018, passed

as a money bill thereby bypassing the Rajya Sabha, are

unconstitutional and violate doctrine of separation of

powers which is part of the basic structure of the

Constitution. That the Constitution of India distinguishes

between an Ordinary Bill, a Money Bill and a Financial

Bill. Article 110(1) defines a money bill and Article 109

provides for the special procedure in respect of money

bills. It states that a money bill can be introduced only in

the Lower House. A Money Bill as per Article 110(1) is a

Bill which contains only provisions dealing with all or any

of the following matters, namely-

(a) the imposition, abolition, remission, alteration or

regulation of any tax;
(b) the regulation of the borrowing of money or the
giving of any guarantee by the Government of India,
or the amendment of the law with respect to any
financial obligations undertaken or to be undertaken
by the Government of India;
 (c) the custody of the consolidated Fund or the
Contingency Fund of India, the payment of moneys
into or the withdrawal of moneys from any such Fund;
(d) the appropriation of moneys out of the
consolidated Fund of India;
(e) the declaring of any expenditure to be expenditure
charged on the Consolidated Fund of India or the
increasing of the amount of any such expenditure;
(f) the receipt of money on account of the
Consolidated Fund of India or the public account of
India or the custody or issue of such money or the
audit of the accounts of the Union or of a State; or
(g) any matter incidental to any of the matters
specified in sub-clause (a) to (f).

In view of Article 117(1), a Bill which makes provisions for any

of the above mentioned matters, and additionally with any

other matter is called a Financial Bill. Therefore, the Finance

Bill, 2017 may be a Money Bill if it deals only with the matters

specified above, and not with any other extraneous matter as

otherwise it would be categorised as a Financial Bill.

That since the Rajya Sabha does not possess co-ordinate

power with Lok Sabha in case of a Money Bill, the Lok Sabha

has effectively bypassed the Rajya Sabha by voting the same

as a Money Bill, though amendment to FCRA cannot be stated

to be an amendment which can be covered in the definition of

a Money Bill.

GROUNDS:
A. Because the said amendments in question have opened the

floodgates to unlimited corporate donations to political parties

and anonymous financing by Indian as well as foreign

companies which can have serious repercussions on the

Indian democracy. The Finance Act, 2016 has amended the

Foreign Contribution Regulation Act (FCRA), 2010, to allow

foreign companies with subsidiaries in India to fund political

parties in India, effectively, exposing the Indian politics and

democracy to international lobbyists who may want to further

their agenda.

B. The Finance Act, 2018 has amended the Foreign Contribution

Regulation Act (FCRA), 2010 with effect from 1976 in an

attempt to over-turn the judgement passed by the Hon’ble

High Court of Delhi in the case titled Association For

Democratic Reforms vs Union Of India & Ors dated

23.03.2014 which is unconstitutional under our constitutional

scheme.

C. Because these Amendments pose a serious danger to the

autonomy of the country and are bound to adversely affect

electoral transparency, encourage corrupt practices in politics

and have made the unholy nexus between politics and

corporate houses more opaque and treacherous and is bound

to be misused by special interest groups and corporate

lobbyists, and thus are in violation of Articles 14 and 21 of the

Constitution of India.
D. Because if the recent amendments are not set aside, foreign

countries and corporate houses and extremely wealthy lobby

groups can have a stranglehold on the electoral process and

governance. Such activities, if allowed, can result in a

situation that legislation, regulations etc. can be ultimately be

passed and laws brought in to favour of these corporates and

lobby groups at the expense of the common citizens of the

country.

E. Because this will lead to the creation of shell companies and

rise of benami transactions to channelize the undocumented

money into the political and electoral process in India. The

new amendments contravene the bare text of the Constitution.

The present petition therefore, highlights this breach which is

particularly disturbing, because the legislation imperils our

core liberties and rights guaranteed under the Constitution, in

manners both explicit and insidious.

F. Because the Constitution of India distinguishes between an

Ordinary Bill, a Money Bill and a Financial Bill. Article 110(1)

defines a money bill and Article 109 provides for the special

procedure in respect of money bills. It states that a money bill

can be introduced only in the Lower House. A Money Bill as

per Article 110(1) is a Bill which contains only provisions

dealing with all or any of the following matters, namely- (a)

the imposition, abolition, remission, alteration or regulation of

any tax; (b) the regulation of the borrowing of money or the

 giving of any guarantee by the Government of India, or the

amendment of the law with respect to any financial obligations

undertaken or to be undertaken by the Government of India;

(c) the custody of the consolidated Fund or the Contingency

Fund of India, the payment of moneys into or the withdrawal

of moneys from any such Fund; (d) the appropriation of

moneys out of the consolidated Fund of India; (e) the

declaring of any expenditure to be expenditure charged on the

Consolidated Fund of India or the increasing of the amount of

any such expenditure; (f) the receipt of money on account of

the Consolidated Fund of India or the public account of India

or the custody or issue of such money or the audit of the

accounts of the Union or of a State; or (g) any matter

incidental to any of the matters specified in sub-clause (a) to

(f). In view of Article 117(1), a Bill which makes provisions for

any of the above mentioned matters, and additionally with any

other matter is called a Financial Bill. Therefore, the Finance

Bill, 2018 may be a Money Bill if it deals only with the matters

specified above, and not with any other extraneous matter as

otherwise it would be analysed as a Financial Bill. However,

an amendment to FCRA cannot be categorized as a Money

Bill.

G. Because it is a settled principle of law that the legislature can

pass an amendment to an existing law to cure the defect in

that law. When the Court held BJP and INC guilty of accepting
donations from ‘Financial Source’ as prohibited in FCRA,

1976, then in no circumstance whatsoever can any political

party in power use the powers vested in the legislature to cure

the guilt on its part by bringing any law or amendment to an

existing law. Recently in the case of State of Karnataka and

Ors. v. Union of India and Ors, dated 16.03.2018, this Hon’ble

Court held that:

“22. On analysis of the aforesaid judgments it

can be said that the Legislature has the power

to enact validating laws including the power to

amend laws with retrospective effect.

However, this can be done to remove causes

of invalidity. When such a law is passed t he

Legislature basically corrects the errors

which have been pointed out in a judicial

pronouncement. Resultantly, it amends the

law, by removing the mistakes committed in

the earlier legislation, the effect of which is to

remove the basis and foundation of the

judgment. If this is done, the same does not

amount to statutory overruling.

23. However, the Legislature cannot set at

naught the judgments which have been

pronounced by amending the law not for the

purpose of making corrections or removing

anomalies but to bring in new provisions

which did not exist earlier. The Legislature

 may have the power to remove the basis or

foundation of the judicial pronouncement but

the Legislature cannot overturn or set aside

the judgment, that too retrospectively by

introducing a new provision. The legislature is

bound by the mandamus issued by the Cou rt.

A judicial pronouncement is always binding

unless the very fundamentals on which it is

based are altered and the decision could not

have been given in the altered circumstances.

The Legislature cannot, by way of introducing

an amendment, overturn a judicial

pronouncement and declare it to be wrong or

a nullity. What the Legislature can do is to

amend the provisions of the statute to remove

the basis of the judgment.”

H. Because the legislature by extending the scope of amendment

to the already repealed FCRA, 1976 has tried to get away with

the guilt on the part of BJP and INC as recognized by the

Hon’ble High Court and this is nothing but breach of the

principle of Separation of Powers. In catena of judgments it

has been held by this Hon’ble Court that Separation of

Powers though not specifically mentioned in the Constitution

but is still an entrenched principle. In State of Tamil Nadu v.

State of Kerala and Another reported as 9 (2014) 12 SCC 696

the Constitution Bench of this Court again dealt with the

question as to whether the Legislature could set at naught the

decision of the superior courts. After referring to a large

number of judgments, this Court laid down the following

principles:-

“(i) that the doctrine of separation of powers is

an entrenched principle in the Constitution of

India even though there is no specific

provision in the Constitution;

(ii) Independence of Courts from Executive and

Legislature is fundamental to the rule of law

and one of the basic tenets of the Indian

Constitution;

(iii) the doctrine of separation of powers

between the three organs of the State –

Legislature, Executive and the Judiciary is a

consequence of principles of equality

enshrined in Article 14 of the Co nstitution of

India. Consequently, a law can be set aside

on the ground that it breaches the doctrine of

separation of powers since that would amount

to negation of equality under Article 14 of the

Constitution of India;

(iv) the High Courts and the Supreme Court are

empowered by the Constitution of India to

determine whether a law made by the

Parliament or State Legislature is void;

 (v) the doctrine of separation of powers applies

to the final judgments of the courts. The

Legislature cannot declare any decision of a

court of law to be void or of no effect. It can,

however, pass an amending Act to remedy the

defects pointed out by a court of law or on

coming to know of it aliunde;

(vi) if the Legislature has the power and

competence to make a validating law it can

make the law retrospective;

(vii) even where the law is enacted by the

Legislature appears within its competence but

if in substance it is shown as an attempt to

interfere with the judicial proce ss, such law

can be invalidated being in breach of the

doctrine of separation of powers.”

The same principle has been reiterated in Cheviti Venkanna

Yadav vs. State of Telangana and Others reported as 10

(2017) 1 SCC 283 in the following terms:-

“30.……The legislature has the power to enact

laws including the power to retrospectively

amend laws and thereby remove causes of

ineffectiveness or invalidity. When a law is

enacted with retrospective effect, it is not

considered as an encroachment upon judicial

power when the legislature does not directly

 overrule or reverse a judicial dictum. The

legislature cannot, by way of an enactment,

declare a decision of the court as erroneous

or a nullity, but can amend the statute or the

provision so as to make it applicable to the

past……”

I. Because the Legislature by bringing the amendment is trying

to legalise the actions of the political parties of accepting

donations from ‘Financial Sources’ and this is just a clear

case of doing something indirectly which cannot be done

directly. In the case of Asst. Commnr. Of Agri. Income Tax &

v. M/S. Netley 'B' Estate & Ors on 17 March, 2015, it was held

by this Hon’ble Court that:

“The consistent thread that runs through all the

decisions of this Court is that the legislature

cannot directly overrule the decision or make

a direction as not binding on it but has power

to make the decision ineffective by removing

the base on which the decision was rendered,

consistent with the law of the Constitution and

the legislature must have competence to do

the same."

PRAYERS
The Petitioners respectfully pray that this Hon’ble Court may

be pleased to:

a) Issue a writ of declaration or any other appropriate

writ declaring the amendments introduced in FCRA

2010 by Section 236 of Finance Act, 2016 and by

Section 217 of the Finance Act, 2018 to be void,

illegal and unconstitutional;

b) Pass any other further order as this Hon’ble Court may

deem fit and proper in the interest of justice.

Petitioners Through:

PRASHANT BHUSHAN

Counsel for the Petitioners

Drawn by: Ms. Neha Rathi

Drawn & Filed On: April 2018

New Delhi