KEISHAM MEGHACHANDRA SINGHversusTHE HON’BLE SPEAKER MANIPUR LEGISLATIVE ASSEMBLY & ORS.

132                       [2020]
               SUPREME COURT     2 S.C.R. 132
                              REPORTS                       [2020] 2 S.C.R.


A                   KEISHAM MEGHACHANDRA SINGH
                                        v.
            THE HON’BLE SPEAKER MANIPUR LEGISLATIVE
                        ASSEMBLY & ORS.
B
                          (Civil Appeal No. 547 of 2020)
                               JANUARY 21, 2020
               [R. F. NARIMAN, ANIRUDDHA BOSE AND
                      V. RAMASUBRAMANIAN, JJ.]
C
             Constitution of India – Tenth Schedule – Disqualification of
      a candidate nominated in Legislative Assembly elections on ground
      of defection – The election for the 11th Manipur Legislative Assembly
      was conducted in March, 2017 – None of the political parties were
D     able to secure a majority i.e. 31 seats in a Legislative Assembly of
      60 seats in order to form the Government – The Congress Party
      emerged as the single largest party with 28 seats and BJP with 21
      seats – The respondent no. 3 contested as a candidate nominated
      and set up by the Congress party and was duly elected – On
E     12.03.2017, respondent no. 3 along with various BJP members met
      the Governor of the State and staked a claim for forming a BJP-led
      Government – Thereafter, the respondent no. 3 was sworn in as a
      Minister in BJP-led government – Applications were filed before
      the Speaker of the legislative Assembly between April and July, 2017
F     seeking disqualification of the respondent no. 3 under paragraph
      2(1)(a) of the Tenth Schedule – No action was taken by the Speaker
      – Held: It is clear from a reading of the judgment in Rajendra Singh
      Rana and S.A. Sampath Kumar that a failure to exercise jurisdiction
      vested in a Speaker cannot be covered by the shield contained in
G
      paragraph 6 of the Tenth Schedule, and that when a Speaker refrains
      from deciding a petition within a reasonable time, there was clearly
      an error which attracted jurisdiction of the High court in exercise
      of the power of judicial review – Further, Kihoto Hollohan do not
      in any manner, interdict judicial review in aid of the Speaker arriving
H
                                       132
    KEISHAM MEGHACHANDRA SINGH v. THE HON’BLE SPEAKER                   133
                 MANIPUR LEGISLATIVE ASSEMBLY

at a prompt decision as to disqualification under the provisions of     A
the Tenth Schedule – The Speaker, in acting as a Tribunal under
the Tenth Schedule is bound to decide disqualification petitions
within a reasonable period – What is reasonable will depend on the
facts of each case, but absent exceptional circumstances for which
there is good reason, a period of three months from the date on         B
which the petition is filed is the outer limit within which the
disqualification petition filed before the Speaker must be decided if
the Constitutional objective of disqualifying persons who have
infracted the Tenth Schedule is to be adhered to – The only relief
                                                                        C
that can be given in these instant appeals is that the Speaker of the
Legislative Assembly be directed to decide the disqualification
petitions pending before him within a period of four weeks from the
date on which this judgment is intimated to him.
      Words and Phrases – "Quia timet" – Discussed.                     D
      Disposing of the appeals, the Court
      Held: 1. It is clear from a reading of the judgment in
Rajendra Singh Rana and, in particular, the underlined portions
of paragraphs 40 and 41 that the very question referred by the          E
Two Judge Bench in S.A. Sampath Kumar has clearly been
answered stating that a failure to exercise jurisdiction vested in
a Speaker cannot be covered by the shield contained in paragraph
6 of the Tenth Schedule, and that when a Speaker refrains from
deciding a petition within a reasonable time, there was clearly an      F
error which attracted jurisdiction of the High Court in exercise
of the power of judicial review. [Para 22][154E-F]
      Rajendra Singh Rana v. Swami Prasad Maurya (2007)
      4 SCC 270 : 2007 (2) SCR 591; S.A. Sampath Kumar                  G
      v. Kale Yadaiah and Ors. SLP(C) No. 33677/2015 –
      relied on
      2. Indeed, the same result would ensue on a proper reading
of Kihoto Hollohan. Paragraphs 110 and 111 of the said judgment
                                                                        H
134            SUPREME COURT REPORTS                      [2020] 2 S.C.R.


A     when read together would make it clear that what the finality
      clause in paragraph 6 of the Tenth Schedule protects is the
      exclusive jurisdiction that vests in the Speaker to decide
      disqualification petitions so that nothing should come in the way
      of deciding such petitions. The exception that is made is also of
B     importance in that interlocutory interference with decisions of
      the Speaker can only be qua interlocutory disqualifications or
      suspensions, which may have grave, immediate, and irreversible
      repercussions. Indeed, the Court made it clear that judicial
      review is not available at a stage prior to the making of a decision
C
      by the Speaker either by a way of quia timet action or by other
      interlocutory orders. [Para 23][154G-H, 155A-B]
            Kihoto Hollohan v. Zachillhu & Ors. (1992) Supp. (2)
            SCC 651; [1992] 1 SCR 686 – relied on
D
            Fletcher v. Bealey (1884) 28 Ch. D. 688; London
            Borough of Islington v. Margaret Elliott [2012] EWCA
            Civ. 56 (See paragraph 30) and Vastint Leeds BV v.
            Persons Unknown [2018] EWHC 2456 (Ch.) –
            referred to.
E
             3. On perusal of the various decisions, it shows that what
      was meant to be outside the pale of judicial review in paragraph
      110 of Kihoto Hollohan are quia timet actions in the sense of
      injunctions to prevent the Speaker from making a decision on
F     the ground of imminent apprehended danger which will be
      irreparable in the sense that if the Speaker proceeds to decide
      that the person be disqualified, he would incur the penalty of
      forfeiting his membership of the House for a long period.
      Paragraphs 110 and 111 of Kihoto Hollohan do not, therefore, in
G     any manner, interdict judicial review in aid of the Speaker arriving
      at a prompt decision as to disqualification under the provisions
      of the Tenth Schedule. Indeed, the Speaker, in acting as a Tribunal
      under the Tenth Schedule is bound to decide disqualification
      petitions within a reasonable period. What is reasonable will
H
    KEISHAM MEGHACHANDRA SINGH v. THE HON’BLE SPEAKER                    135
                 MANIPUR LEGISLATIVE ASSEMBLY

depend on the facts of each case, but absent exceptional                 A
circumstances for which there is good reason, a period of three
months from the date on which the petition is filed is the outer
limit within which disqualification petitions filed before the
Speaker must be decided if the constitutional objective of
disqualifying persons who have infracted the Tenth Schedule is           B
to be adhered to. This period has been fixed keeping in mind the
fact that ordinarily the life of the Lok Sabha and the Legislative
Assembly of the States is 5 years and the fact that persons who
have incurred such disqualification do not deserve to be MPs/
                                                                         C
MLAs even for a single day, as found in Rajendra Singh Rana, if
they have infracted the provisions of the Tenth Schedule. [Para
28][157A-F]
       4. It is time that Parliament have a rethink on whether
disqualification petitions ought to be entrusted to a Speaker as a       D
quasi-judicial authority when such Speaker continues to belong
to a particular political party either de jure or de facto. Parliament
may seriously consider amending the Constitution to substitute
the Speaker of the Lok Sabha and Legislative Assemblies as
arbiter of disputes concerning disqualification which arise under        E
the Tenth Schedule with a permanent Tribunal headed by a retired
Supreme Court Judge or a retired Chief Justice of a High Court,
or some other outside independent mechanism to ensure that
such disputes are decided both swiftly and impartially, thus giving
                                                                         F
real teeth to the provisions contained in the Tenth Schedule, which
are so vital in the proper functioning of our democracy. [Para
30][159A-C]
      5. It is not possible to accede to appellant’s submission
that this Court issue a writ of quo warranto quashing the                G
appointment of the Respondent No.3 as a minister of a cabinet
led by a BJP government. The respondent is right in stating that
a disqualification under the Tenth Schedule from being an MLA
and consequently minister must first be decided by the exclusive
authority in this behalf, namely, the Speaker of the Manipur             H
136             SUPREME COURT REPORTS                        [2020] 2 S.C.R.


A     Legislative Assembly. It is also not possible to accede to the
      argument of the appellant that the disqualification petition be
      decided by this Court in these appeals given the inaction of the
      Speaker. It cannot be said that the facts in the present case are
      similar to the facts in Rajinder Singh Rana. In the present case,
B     the life of the legislative assembly comes to an end only in March,
      2022 unlike in Rajinder Singh Rana where, but for this Court
      deciding the disqualification petition in effect, no relief could have
      been given to the petitioner in that case as the life of the legislative
      assembly was about to come to an end. The only relief that can
C
      be given in these appeals is that the Speaker of the Manipur
      Legislative Assembly be directed to decide the disqualification
      petitions pending before him within a period of four weeks from
      the date on which this judgment is intimated to him. In case no
D     decision is forthcoming even after a period of four weeks, it will
      be open to any party to the proceedings to apply to this Court for
      further directions/reliefs in the matter. [Para 31][159C-H]
                               Case Law Reference
      [2007] 2 SCR 591                  relied on              Para 22
E
      [1992] 1 SCR 686                  relied on              Para 23
              CIVIL APPELLATE JURISDICTION: Civil Appeal No. 547 of
      2020.

F          From the Judgment and Order dated 23.07.2019 of the High Court
      of Manipur at Imphal in W.P. (C) No. 70 of 2018.
                                        With
              Civil Appeal Nos. 548, 549, 550 of 2020.
G           Ms. Madhavi Divan, ASG, Kapil Sibal, S. G. Hasnain, H. S.
      Paonam, Sr. Advs., Yasir Rauf, Syed Mohd. Fazal, Vijay Kumar, Syed
      Javed Hashmi, Ms. Vithika Garg, Ms. Vidushi Garg, M Z. Chaudhry,
      Syed Imtiyaz Ali, Ali Safeer Farooqi, Arvind Kumar Kanva, Aftab Ali

H
    KEISHAM MEGHACHANDRA SINGH v. THE HON’BLE SPEAKER                       137
                  MANIPUR LEGISLATIVE ASSEMBLY

Khan, David A., Ms. Vaishali Verma, Ms. Rajkumari Banju, L. K.              A
Paonam, S. Gunabanta Meitei, Niraj Bobby Paonam, Ms. Tomthinnganbi
Koijam, S. K. Bhattacharya, Advs. for the appearing parties.
      The Judgment of the Court was delivered by
      R. F. NARIMAN, J.                                                     B
      1. Leave granted.
        2. The Appeals in the present case raise important questions
relating to the Tenth Schedule to the Constitution of India (hereinafter
referred to as “Tenth Schedule”). The election for the 11th Manipur         C
Legislative Assembly was conducted in March, 2017. The said Assembly
election produced an inconclusive result as none of the political parties
were able to secure a majority i.e. 31 seats in a Legislative Assembly of
60 seats in order to form the Government. The Indian National Congress
(hereinafter referred to as “Congress Party”) emerged as the single         D
largest party with 28 seats, the Bharatiya Janata Party (hereinafter
referred to as “BJP”) coming second with 21 seats. The Respondent
No.3, in the Civil Appeal arising out of SLP(C) No. 18659 of 2019,
contested as a candidate nominated and set up by the Congress Party
and was duly elected as such. On 12.03.2017, immediately after the          E
declaration of the results, Respondent No.3 along with various BJP
members met the Governor of the State of Manipur in order to stake a
claim for forming a BJP-led Government. On 15.03.2017, the Governor
invited the group lead by the BJP to form the Government in the State.
                                                                            F
On the same day, the Chief Minister-Designate sent a letter to the
Governor for administering oath as Ministers to eight elected MLAs
including Respondent No.3. On the same day, Respondent No.3 was
sworn in as a Minister in the BJP-led government and continues as such
till date.                                                                  G
      3. As many as thirteen applications for the disqualification of
Respondent No.3 were filed before the Speaker of the Manipur
Legislative Assembly between April and July, 2017 stating that
Respondent No.3 was disqualified under paragraph 2(1)(a) of the Tenth
                                                                            H
138             SUPREME COURT REPORTS                           [2020] 2 S.C.R.


A     Schedule. The present petition that was filed by the Appellant, in the
      Civil Appeal arising out of SLP(C) No. 18659 of 2019, was dated
      31.07.2017.
             4. Since no action was taken on any of these petitions by the
B     Speaker, one T.N. Haokip filed a writ petition being Writ Petition (C)
      No.353 of 2017 before the High Court of Manipur at Imphal, in which
      the Petitioner prayed that the High Court direct the Speaker to decide
      his disqualification petition within a reasonable time. On 08.09.2017, the
      High Court stated that as the issue of whether a High Court can direct a
C     Speaker to decide a disqualification petition within a certain timeframe
      is pending before a Bench of 5 Hon’ble Judges of the Supreme Court
      the High Court cannot pass any order in the matter, and the matter was
      ordered to be listed so as to await the outcome of the cases pending
      before the Supreme Court.
D
             5. After waiting till January, 2018, on 29.01.2018, the Appellant, in
      the Civil Appeal arising out of SLP(C) No. 18659 of 2019, filed Writ
      Petition (C) No.17 of 2018 before the same High Court asking for the
      following reliefs:
E           “i. Issue Rule Nisi;
            ii. To issue an appropriate Writ, Order or Direction as to this
      Hon’ble Court may deem fit and proper;
             iii. To declare that Respondent No. 3 has incurred disqualification
F     for being a member of the Manipur Legislative Assembly under para
      2(1) (a) of the Xth Schedule to the Constitution of India in terms of law
      laid down by the Constitution Bench of the Hon’ble Supreme Court in
      Rajendra Singh Rana and Ors. -Vrs- Swami Prasad Maurya and Ors.
      reported in (2007) 4 SCC 270.
G
             iv. If the Hon’ble High Court is pleased to consider that the prayer
      made in para no. (ii) and (iii) above deserve merit for a favourable order,
      a writ in the nature of Quo Warranto be issued ousting Respondent No.
      3 from the post/office of Minister.”
H
    KEISHAM MEGHACHANDRA SINGH v. THE HON’BLE SPEAKER                        139
       MANIPUR LEGISLATIVE ASSEMBLY [R. F. NARIMAN, J. ]


      6. The writ petition was taken up and heard by the High Court          A
and disposed of by the impugned judgment dated 23.07.2019. The
questions that the High Court posed before itself, which required
consideration at its hands, were stated as follows:
      “(a) Whether, in the facts and circumstances of the present case,      B
      the respondent No. 1 can be said to have failed to discharge its
      duties as enjoined in the Tenth Schedule to the Constitution of
      India to decide the petitions?
      (b) If the above issue (a) is answered in the affirmative, whether
      the respondent No. 3 has prima facie incurred disqualification?        C

      (c) If the respondent No. 3 is found to have incurred a prima
      facie disqualification, whether this Court can issue an order
      disqualifying the respondent No. 3 from being a member of the
      Manipur Legislative Assembly or alternatively, whether this Court      D
      has the power and jurisdiction to issue a writ of quo warranto
      declaring the holding of the post of a Minister by the respondent
      No. 3 as illegal, as it being without any authority of law?”
       7. In answer to a preliminary objection taken by the Speaker that
judicial review is shut out in cases like the present, the High Court held   E
that the Speaker is a quasi-judicial authority who is required to take a
decision within a reasonable time, such reasonable time obviously being
a time which is much less than five years since the life of the House was
five years. The High Court held that the remedy provided in the Tenth
                                                                             F
Schedule is in essence an alternative remedy to be exhausted before
approaching the High Court, and this being the case, if such alternative
remedy is found to be ineffective due to deliberate inaction or indecision
on the part of the Speaker, the Court cannot be denied jurisdiction to
issue an appropriate writ to the Speaker. Consequently, the preliminary      G
objection was dismissed and the Court went on to hear the writ petition
on merits. On the facts as stated above, following Ravi S. Naik v.
State of Maharashtra 1994 Supp. (2) SCC 641, the Court found that
the voluntary giving up of the membership of a political party may be
                                                                             H
140             SUPREME COURT REPORTS                           [2020] 2 S.C.R.


A     express or implied by conduct, and that the unequivocal conduct of the
      Respondent No.3 becoming a Minister in a BJP-led Government after
      fighting the election by being a member of the Congress Party would
      make it clear that the disqualification contained in paragraph 2(1)(a) of
      the Tenth Schedule is clearly attracted. The High Court then cited several
B     judgments on the writ of quo warranto but ultimately came to a finding
      that since the very same issue was pending before a Constitution Bench
      of the Supreme Court, it would not be appropriate for the High Court to
      pass any order for the time being, which would include orders relating to
      the inaction or indecision on the part of the Speaker, as well as the
C
      issuing of a writ of quo warranto. The High Court thus ultimately
      declined to grant any relief in the writ petition, as a result of which the
      Appellant is before us.
             8. Shri Kapil Sibal, learned Senior Advocate appearing on behalf
D     of the Appellant, in the Civil Appeal arising out of SLP(C) No. 18659 of
      2017, has argued that the Speaker in the present case has deliberately
      refused to decide the disqualification petitions before him. This is evident
      from the fact that no decision is forthcoming till date on petitions that
      were filed way back in April, 2017. Further, it is clear that notice in the
E     present disqualification petition was issued by the Speaker only on
      12.09.2018, long after the petition had been filed, and as correctly stated
      by the High Court, it cannot be expected that the Speaker will decide
      these petitions at all till the life of the Assembly of 5 years expires. In
      these circumstances, he has exhorted us to issue a writ of quo warranto
F
      against Respondent No.3 stating that he has usurped a constitutional
      office, and to declare that he cannot do so. For this purpose, he has cited
      several judgments of this Court. He has also argued that though it is
      correct to state that whether a writ petition can at all be filed against
      inaction by a Speaker is pending before a Bench of 5 Judges of this
G
      Court, yet, it is clear from a reading of paragraph 110 of Kihoto Hollohan
      v. Zachillhu & Ors. (1992) Supp. (2) SCC 651, that all that was
      interdicted by that judgment was the grant of interlocutory stays which
      would prevent a Speaker from making a decision and not the other way
H
    KEISHAM MEGHACHANDRA SINGH v. THE HON’BLE SPEAKER                             141
       MANIPUR LEGISLATIVE ASSEMBLY [R. F. NARIMAN, J. ]


around. For this purpose, he read to us Black’s Law Dictionary on the             A
meaning of a quia timet action, and argued that the judgment read as a
whole would make it clear that if the constitutional objective of checking
defections is to be achieved, judicial review in aid of such goal can
obviously not be said to be interdicted. He also strongly relied upon the
observations of this Court in Rajendra Singh Rana v. Swami Prasad                 B
Maurya (2007) 4 SCC 270 and exhorted us to uphold the reasoning
contained in the impugned judgment and then issue a writ of quo warranto
against Respondent No.3.
       9. Mrs. Madhavi Divan, learned Addl. Solicitor General appearing           C
for the Hon’ble Speaker of the Manipur Legislative Assembly, has argued
that the reliefs prayed for in the writ petition filed by the Appellant, in the
Civil Appeal arising out of SLP(C) No. 18659 of 2017, are diametrically
opposed to the relief asked for in Writ Petition (C) No.353 of 2017, as a
result of which, there being mutually destructive pleas and prayers made          D
in the two writ petitions, no relief ought to be granted in the present
case. In any case, the prayers asked for in the present case are directly
interdicted by the judgment of a Constitution Bench of this Court in
Kihoto Hollohan (supra) inasmuch as a writ of quo warranto cannot
possibly be granted without first deciding whether Respondent No.3                E
stands disqualified, which is within the exclusive jurisdiction of the
Speaker. She argued that the High Court was wholly incorrect in holding
that the Speaker’s decision under the Tenth Schedule would be in the
nature of an alternative remedy and held that this would be directly
                                                                                  F
contrary to several judgments of this Court, in particular, Nabam Rebia
and Bamang Felix v. Deputy Speaker, Arunachal Pradesh
Legislative Assembly (2016) 8 SCC 1, which states that the Speaker
has exclusive jurisdiction to decide disqualification questions that are
referred to him. In any case, she argued that a Three Judge Bench
                                                                                  G
cannot decide the present case and has to await the judgment of a Five
Judge Bench which has been made on a specific reference made by a
Two Judge Bench of this Court. She also distinguished the sheet anchor
of Shri Sibal’s case i.e. the judgment in Rajendra Singh Rana (supra)
                                                                                  H
142             SUPREME COURT REPORTS                            [2020] 2 S.C.R.


A     by stating that the facts there were completely different and that
      ultimately judicial review took place only because there was a final
      decision of the Speaker in that case. Further, because of the fact that
      the life of the Assembly was about to end, this Court using its powers
      under Article 142 of the Constitution of India in an extra-ordinary situation
B     decided the petition for disqualification itself. Both these features are
      absent in the present case. Thus, according to her, while the ultimate
      conclusion in the High Court judgment is correct, all the findings in favor
      of the Appellant fly in the face of judgments of this Court.

C             10. Having heard learned counsel for both the parties, it is important
      to first set out the reference order of this Court dated 08.11.2016 in S.A.
      Sampath Kumar v. Kale Yadaiah and Ors. SLP(C) No. 33677/2015.
      A Division Bench of this Court after referring to Speaker, Haryana
      Vidhan Sabha v. Kuldeep Bishnoi & Ors. (2015) 12 SCC 381, and
D     Speaker, Orissa Legislative Assembly v. Utkal Keshari Parida
      (2013) 11 SCC 794, then held:
             “We have considered the aforesaid submissions of both the learned
             Attorney General and the learned counsel appearing on behalf of
             the petitioner. We feel that a substantial question as to the
E
             interpretation of the Constitution arises on the facts of the present
             case. It is true that this Court in Kihoto Hollohan’s case laid down
             that a quiatimet action would not be permissible and Shri Jayant
             Bhushan, learned senior counsel appearing on behalf of some of
F            the respondents has pointed out to us that in P. Ramanatha Aiyar’s
             Advanced Law Lexicon a quiatimet action is the right to be
             protected against anticipated future injury that cannot be prevented
             by the present action. Nevertheless, we are of the view that it
             needs to be authoritatively decided by a Bench of five learned
G            Judges of this Court, as to whether the High Court, exercising
             power under Article 226 of the Constitution, can direct a Speaker
             of a legislative assembly (acting in quasi judicial capacity under
             the Tenth Schedule) to decide a disqualification petition within a
             certain time, and whether such a direction would not fall foul of
H
    KEISHAM MEGHACHANDRA SINGH v. THE HON’BLE SPEAKER                         143
       MANIPUR LEGISLATIVE ASSEMBLY [R. F. NARIMAN, J. ]


      the quiatimet action doctrine mentioned in paragraph 110 of Kihoto      A
      Hollohan’s case. We cannot be mindful of the fact that just as a
      decision of a Speaker can be corrected by judicial review by the
      High Court exercising jurisdiction under Article 226, so prima facie
      should indecision by a Speaker be correctable by judicial review
      so as not to frustrate the laudable object and purpose of the Tenth     B
      Schedule, which has been referred to in both the majority and
      minority judgments in Kihoto Hollohan’s case. The facts of the
      present case demonstrate that disqualification petitions had been
      referred to the Hon’ble Speaker of the Telangana State Legislative
                                                                              C
      Assembly on 23rd August, 2014, and despite the hopes and
      aspirations expressed by the impugned judgment, the Speaker has
      chosen not to render any decision on the said petitions till date.
      We, therefore, place the papers before the Hon’ble Chief Justice
      of India to constitute an appropriate Bench to decide this question     D
      as early as possible.”
       11. We would have acceded to Mrs. Madhavi Divan’s plea that in
view of this order of a Division Bench of this Court, the hearing of this
case ought to be deferred until the pronouncement by a Five Judge Bench
of this Court on the issues raised in the present petition. However, we       E
find that this very issue was addressed by a Five Judge Bench judgment
in Rajendra Singh Rana (supra) and has already been answered.
Unfortunately, the decision contained in the aforesaid judgment was not
brought to the notice of the Division Bench which referred the matter to
                                                                              F
Five Hon’ble Judges of this Court, though Rajendra Singh Rana (supra)
was sought to be distinguished in Kuldeep Bishnoi (supra), which was
brought to the notice of the Division Bench of this Court.
       12. Backtracking a little, it is important to first set out what was
decided in the majority decision in Kihoto Hollohan(supra). A Bench           G
of 3 learned Judges of this Court set out, in paragraph 24 of the judgment,
several questions that required decision in that case. We are directly
concerned with questions (E) and (F), which are so set out and which
read as follows:
                                                                              H
144            SUPREME COURT REPORTS                            [2020] 2 S.C.R.


A           “24. On the contentions raised and urged at the hearing the
            questions that fall for consideration are the following:
            xxx xxx xxx
            (E) That the deeming provision in Paragraph 6(2) of the Tenth
            Schedule attracts the immunity under Articles 122 and 212. The
B           Speaker and the Chairman in relation to the exercise of the powers
            under the Tenth Schedule shall not be subjected to the jurisdiction
            of any Court.
            The Tenth Schedule seeks to and does create a new and non-
            justiciable area of rights, obligations and remedies to be resolved
C           in the exclusive manner envisaged by the Constitution and is not
            amenable to, but constitutionally immune from, curial adjudicative
            processes.
            (F) That even if Paragraph 7 erecting a bar on the jurisdiction of
            Courts is held inoperative, the Courts’ jurisdiction is, in any event,
D           barred as Paragraph 6(1) which imparts a constitutional ‘finality’
            to the decision of the Speaker or the Chairman, as the case may
            be, and that such concept of ‘finality’ bars examination of the
            matter by the Courts.”
             13. The majority judgment noticed that before the Constitution
E     (Fifty Second Amendment) Act, 1985 inserting the Tenth Schedule into
      the Constitution of India, two abortive attempts were made in view of
      the recommendations of the Committee on Defections to enact an anti-
      defection law. The first was the Constitution (Thirty Second Amendment)
      Bill, 1973, which lapsed on account of dissolution of the House; and the
F
      second was the Constitution (Forty Eighth Amendment) Bill, 1979 which
      also so lapsed. The Court in paragraphs 9 and 13 referred to the object
      of the Constitution (Fifty Second Amendment) Act, 1985 as follows:
            “9. This brings to the fore the object underlying the provisions in
G           the Tenth Schedule. The object is to curb the evil of political
            defections motivated by lure of office or other similar considerations
            which endanger the foundations of our democracy. The remedy
            proposed is to disqualify the Member of either House of Parliament
            or of the State Legislature who is found to have defected from
H
    KEISHAM MEGHACHANDRA SINGH v. THE HON’BLE SPEAKER                            145
       MANIPUR LEGISLATIVE ASSEMBLY [R. F. NARIMAN, J. ]


     continuing as a Member of the House. The grounds of                         A
     disqualification are specified in Paragraph 2 of the Tenth Schedule.
     xxx xxx xxx
     13. These provisions in the Tenth Schedule give recognition to
     the role of political parties in the political process. A political party   B
     goes before the electorate with a particular programme and it
     sets up candidates at the election on the basis of such programme.
     A person who gets elected as a candidate set up by a political
     party is so elected on the basis of the programme of that political
     party. The provisions of Paragraph 2(1)(a) proceed on the premise           C
     that political propriety and morality demand that if such a person,
     after the election, changes his affiliation and leaves the political
     party which had set him up as a candidate at the election, then he
     should give up his membership of the legislature and go back before
                                                                                 D
     the electorate. The same yardstick is applied to a person who is
     elected as an Independent candidate and wishes to join a political
     party after the election.”
      14. The Court dealt with contentions (E) and (F) together as
follows:                                                                         E
     “95. In the present case, the power to decide disputed
     disqualification under Paragraph 6(1) is pre-eminently of a judicial
     complexion.
     96. The fiction in Paragraph 6(2), indeed, places it in the first           F
     clause of Article 122 or 212, as the case may be. The words
     “proceedings in Parliament” or “proceedings in the legislature of
     a State” in Paragraph 6(2) have their corresponding expression in
     Articles 122(1) and 212(1) respectively. This attracts an immunity
     from mere irregularities of procedures.                                     G
     97. That apart, even after 1986 when the Tenth Schedule was
     introduced, the Constitution did not evince any intention to invoke
     Article 122 or 212 in the conduct of resolution of disputes as to
     the disqualification of members under Articles 191(1) and 102(1).
                                                                                 H
146      SUPREME COURT REPORTS                            [2020] 2 S.C.R.


A     The very deeming provision implies that the proceedings of
      disqualification are, in fact, not before the House; but only before
      the Speaker as a specially designated authority. The decision under
      Paragraph 6(1) is not the decision of the House, nor is it subject to
      the approval by the House. The decision operates independently
B     of the House. A deeming provision cannot by its creation transcend
      its own power. There is, therefore, no immunity under Articles
      122 and 212 from judicial scrutiny of the decision of the Speaker
      or Chairman exercising power under Paragraph 6(1) of the Tenth
      Schedule.
C
      xxx xxx xxx
      100. By these well known and accepted tests of what constitute
      a Tribunal, the Speaker or the Chairman, acting under Paragraph
      6(1) of the Tenth Schedule is a Tribunal.
D
      xxx xxx xxx
      109. In the light of the decisions referred to above and the nature
      of function that is exercised by the Speaker/Chairman under
      Paragraph 6, the scope of judicial review under Articles 136, and
E     226 and 227 of the Constitution in respect of an order passed by
      the Speaker/Chairman under Paragraph 6 would be confined to
      jurisdictional errors only viz., infirmities based on violation of
      constitutional mandate, mala fides, non-compliance with rules of
      natural justice and perversity.
F
      110. In view of the limited scope of judicial review that is available
      on account of the finality clause in Paragraph 6 and also having
      regard to the constitutional intendment and the status of the
      repository of the adjudicatory power i.e. Speaker/Chairman, judicial
G     review cannot be available at a stage prior to the making of a
      decision by the Speaker/Chairman and a quia timet action would
      not be permissible. Nor would interference be permissible at an
      interlocutory stage of the proceedings. Exception will, however,
      have to be made in respect of cases where disqualification or
H
KEISHAM MEGHACHANDRA SINGH v. THE HON’BLE SPEAKER                        147
   MANIPUR LEGISLATIVE ASSEMBLY [R. F. NARIMAN, J. ]


 suspension is imposed during the pendency of the proceedings            A
 and such disqualification or suspension is likely to have grave,
 immediate and irreversible repercussions and consequence.
 111. In the result, we hold on contentions (E) and (F):
 That the Tenth Schedule does not, in providing for an additional        B
 grant (sic ground) for disqualification and for adjudication of
 disputed disqualifications, seek to create a non-justiciable
 constitutional area. The power to resolve such disputes vested in
 the Speaker or Chairman is a judicial power.
                                                                         C
 That Paragraph 6(1) of the Tenth Schedule, to the extent it seeks
 to impart finality to the decision of the speakers/Chairmen is valid.
 But the concept of statutory finality embodied in Paragraph 6(1)
 does not detract from or abrogate judicial review under Articles
 136, 226 and 227 of the Constitution insofar as infirmities based       D
 on violations of constitutional mandates, mala fides, non-compliance
 with Rules of Natural Justice and perversity, are concerned.
 That the deeming provision in Paragraph 6(2) of the Tenth
 Schedule attracts an immunity analogous to that in Articles 122(1)
 and 212(1) of the Constitution as understood and explained in           E
 Keshav Singh case [(1965) 1 SCR 413 : AIR 1965 SC 745] to
 protect the validity of proceedings from mere irregularities of
 procedure. The deeming provision, having regard to the words
 ‘be deemed to be proceedings in Parliament’ or ‘proceedings in
                                                                         F
 the legislature of a State’ confines the scope of the fiction
 accordingly.
 The Speakers/Chairmen while exercising powers and discharging
 functions under the Tenth Schedule act as Tribunal adjudicating
 rights and obligations under the Tenth Schedule and their decisions     G
 in that capacity are amenable to judicial review.
 However, having regard to the Constitutional Schedule in the Tenth
 Schedule, judicial review should not cover any stage prior to the
 making of a decision by the Speakers/Chairmen. Having regard
                                                                         H
148            SUPREME COURT REPORTS                          [2020] 2 S.C.R.


A           to the constitutional intendment and the status of the repository of
            the adjudicatory power, no quia timet actions are permissible, the
            only exception for any interlocutory interference being cases of
            interlocutory disqualifications or suspensions which may have
            grave, immediate and irreversible repercussions and
B           consequence.”
             15. In Rajendra Singh Rana (supra), this Court dealt with an
      order made by the Speaker of the Uttar Pradesh Legislative Assembly
      dated 06.09.2003. On the facts in that case, the 14th Legislative Assembly
C     Election for the State of U.P. was held in February, 2002 and since none
      of the political parties secured the requisite majority, a coalition
      government was formed headed by Ms. Mayawati, leader of the Bahujan
      Samaj Party (hereinafter referred to as “BSP”). On 25.08.2003, the
      Cabinet took a unanimous decision for recommending dissolution of the
D     Assembly, after which, on 27.08.2003, 13 members of the Legislative
      Assembly elected to the Assembly on tickets of the BSP met the Governor
      and requested him to invite the leader of the Samajwadi Party, namely,
      Shri Mulayam Singh Yadav, to form the Government. On 29.08.2003,
      the Governor invited the leader of the Samajwadi Party to form the
E     Government and gave him a time of two weeks to prove his majority in
      the Assembly. On 04.09.2003, Mr. S.P. Maurya, leader of the BSP filed
      a petition before the Speaker under the Tenth Schedule praying that the
      13 BSP MLAs who had proclaimed support to Shri Mulayam Singh
      Yadav before the Governor on 27.08.2003 had incurred the disqualification
F
      mentioned in paragraph 2(1)(a) of the Tenth Schedule. Meanwhile, a
      group of 37 MLAs, said to be on behalf of 40 MLAs elected on BSP
      tickets, requested the Speaker to recognize the split in the BSP on the
      basis that one-third of the members of BSP consisting of 109 legislators
      had separated from the BSP. On 06.09.2003, therefore, the Speaker did
G
      three things – first, he accepted that 37 out of 109 comprises one-third
      of the members of the BSP, which amounted to a split, this group being
      known as the Loktantrik Bahujan Dal. This Dal had merged with the
      Samajwadi Party which merger was then accepted by the very same
H     order dated 06.09.2003. Third, the Speaker did not decide the application
    KEISHAM MEGHACHANDRA SINGH v. THE HON’BLE SPEAKER                          149
       MANIPUR LEGISLATIVE ASSEMBLY [R. F. NARIMAN, J. ]


seeking disqualification of the 13 MLAs who were part of the 37 MLAs           A
who appeared before the Speaker, and adjourned the disqualification
petition. Meanwhile, since a writ petition was filed in the High Court of
Judicature at Allahabad before the Lucknow Bench against this order,
the Speaker passed another order on 14.11.2003, stating that the order
adjourning the petition for disqualification would continue until after the    B
High Court decided the writ petition. However, on 07.09.2005, even
before the writ petition was disposed of by a Full Bench of the High
Court, the Speaker passed an order rejecting the petition filed for
disqualifying of 13 MLAs of the BSP.
                                                                               C
       16. On these facts, the Court noted in paragraph 17 of the judgment
that the order dated 06.09.2003 is the subject matter of challenge in the
writ petition filed before the High Court. In paragraph 30 of the judgment,
this Court made it clear that the order of the Speaker dated 07.09.2005
would have no independent legs to stand on, stating as follows:                D
      “30. ...This last order is clearly inconsistent with the Speaker’s
      earlier order dated 14-11-2003 and still leaves open the question
      whether the petition seeking disqualification should not have been
      decided first or at least simultaneously with the application claiming
                                                                               E
      recognition of a split. If the order recognising the split goes,
      obviously this last order also cannot survive. It has perforce to
      go.”                                            [Emphasis Supplied]
      17. After referring to this Court’s decision in Kihoto Hollohan
(supra) and Ravi S. Naik (supra) in para 22 of the judgment, the Court         F
held:
      “22.…Suffice it to say that the decision of the Speaker rendered
      on 6-9-2003 was not immune from challenge before the High
      Court under Articles 226 and 227 of the Constitution of India.”          G
      18. The Court then went on to hold:
      “25. …On the scheme of Articles 102 and 191 and the Tenth
      Schedule, the determination of the question of split or merger
      cannot be divorced from the motion before the Speaker seeking a
                                                                               H
150      SUPREME COURT REPORTS                          [2020] 2 S.C.R.


A     disqualification of a member or members concerned. It is therefore
      not possible to accede to the argument that under the Tenth
      Schedule to the Constitution, the Speaker has an independent power
      to decide that there has been a split or merger of a political party
      as contemplated by paras 3 and 4 of the Tenth Schedule to the
B     Constitution. The power to recognise a separate group in
      Parliament or Assembly may rest with the Speaker on the basis
      of the Rules of Business of the House. But that is different from
      saying that the power is available to him under the Tenth Schedule
      to the Constitution independent of a claim being determined by
C
      him that a member or a number of members had incurred
      disqualification by defection. To that extent, the decision of the
      Speaker in the case on hand cannot be considered to be an order
      in terms of the Tenth Schedule to the Constitution. The Speaker
      has failed to decide the question, he was called upon to decide, by
D
      postponing a decision thereon. There is therefore some merit in
      the contention of the learned counsel for BSP that the order of
      the Speaker may not enjoy the full immunity in terms of para 6(1)
      of the Tenth Schedule to the Constitution and that even if it did,
E     the power of judicial review recognised by the Court in Kihoto
      Hollohan [1992 Supp (2) SCC 651 : AIR 1993 SC 412 : (1992) 1
      SCR 686] is sufficient to warrant interference with the order in
      question.”
                                                   [Emphasis Supplied]
F
      19. The Court also hastened to add:
      “29. In the case on hand, the Speaker had a petition moved before
      him for disqualification of 13 members of BSP. When that
      application was pending before him, certain members of BSP had
G     made a claim before him that there has been a split in BSP. The
      Speaker, in the scheme of the Tenth Schedule and the rules framed
      in that behalf, had to decide the application for disqualification
      made and while deciding the same, had to decide whether in view
      of para 3 of the Tenth Schedule, the claim of disqualification had
H
    KEISHAM MEGHACHANDRA SINGH v. THE HON’BLE SPEAKER                            151
       MANIPUR LEGISLATIVE ASSEMBLY [R. F. NARIMAN, J. ]


      to be rejected. We have no doubt that the Speaker had totally              A
      misdirected himself in purporting to answer the claim of the 37
      MLAs that there has been a split in the party even while leaving
      open the question of disqualification raised before him by way of
      an application that was already pending before him. This failure
      on the part of the Speaker to decide the application seeking a             B
      disqualification cannot be said to be merely in the realm of
      procedure. It goes against the very constitutional scheme of
      adjudication contemplated by the Tenth Schedule read in the
      context of Articles 102 and 191 of the Constitution. It also goes
                                                                                 C
      against the rules framed in that behalf and the procedure that he
      was expected to follow. It is therefore not possible to accept the
      argument on behalf of the 37 MLAs that the failure of the Speaker
      to decide the petition for disqualification at least simultaneously
      with the petition for recognition of a split filed by them, is a mere      D
      procedural irregularity. We have no hesitation in finding that the
      same is a jurisdictional illegality, an illegality that goes to the root
      of the so-called decision by the Speaker on the question of split
      put forward before him. Even within the parameters of judicial
      review laid down in Kihoto Hollohan [1992 Supp (2) SCC 651 :               E
      AIR 1993 SC 412 : (1992) 1 SCR 686] and in Jagjit Singh v.
      State of Haryana [(2006) 11 SCC 1 : (2006) 13 Scale 335] it has
      to be found that the decision of the Speaker impugned is liable to
      be set aside in exercise of the power of judicial review.”
                                                                                 F
                                                    [Emphasis Supplied]
      20. The Court then adverted to the scope of judicial review being
limited as decided in Kihoto Hollohan (supra) as follows:
      “39. On the side of the 37 MLAs, the scope of judicial review
      being limited was repeatedly stressed to contend that the majority         G
      of the High Court had exceeded its jurisdiction. Dealing with the
      ambit of judicial review of an order of the Speaker under the
      Tenth Schedule, it was held in Kihoto Hollohan [1992 Supp (2)
      SCC 651 : AIR 1993 SC 412 : (1992) 1 SCR 686] : (SCC p. 706,
                                                                                 H
      paras 95-97)
152            SUPREME COURT REPORTS                           [2020] 2 S.C.R.


A              “95. In the present case, the power to decide disputed
               disqualification under para 6(1) is pre-eminently of a judicial
               complexion.
               96. The fiction in para 6(2), indeed, places it in the first clause
B              of Article 122 or 212, as the case may be. The words
               ‘proceedings in Parliament’ or ‘proceedings in the legislature
               of a State’ in para 6(2) have their corresponding expression in
               Articles 122(1) and 212(1) respectively. This attracts an
               immunity from mere irregularities of procedures.
C              97. That apart, even after 1986 when the Tenth Schedule was
               introduced, the Constitution did not evince any intention to
               invoke Article 122 or 212 in the conduct of resolution of disputes
               as to the disqualification of Members under Articles 191(1)
               and 102(1). The very deeming provision implies that the
D
               proceedings of disqualification are, in fact, not before the House;
               but only before the Speaker as a specially designated authority.
               The decision under para 6(1) is not the decision of the House,
               nor is it subject to the approval by the House. The decision
               operates independently of the House. A deeming provision
E
               cannot by its creation transcend its own power. There is,
               therefore, no immunity under Articles 122 and 212 from judicial
               scrutiny of the decision of the Speaker or Chairman exercising
               power under para 6(1) of the Tenth Schedule.”
F           After referring to the relevant aspects, it was held: (SCC p. 707,
      para 100)
               “100. By these well known and accepted tests of what
               constitute a Tribunal, the Speaker or the Chairman, acting under
G              para 6(1) of the Tenth Schedule is a Tribunal.”
            It was concluded: (SCC p. 710, para 109)
               “109. In the light of the decisions referred to above and the
               nature of function that is exercised by the Speaker/Chairman
               under para 6, the scope of judicial review under Articles 136
H
KEISHAM MEGHACHANDRA SINGH v. THE HON’BLE SPEAKER                         153
   MANIPUR LEGISLATIVE ASSEMBLY [R. F. NARIMAN, J. ]


    and 226 and 227 of the Constitution in respect of an order            A
    passed by the Speaker/Chairman under para 6 would be
    confined to jurisdictional errors only viz. infirmities based on
    violation of constitutional mandate, mala fides, non-compliance
    with rules of natural justice and perversity.”
                                                                          B
 The position was reiterated by the Constitution Bench in Raja
 Ram Pal v. Hon’ble Speaker, Lok Sabha [(2007) 3 SCC 184 :
 JT (2007) 2 SC 1]. We are of the view that contours of interference
 have been well drawn by Kihoto Hollohan [1992 Supp (2) SCC
 651 : AIR 1993 SC 412 : (1992) 1 SCR 686] and what is involved           C
 here is only its application.
 40. Coming to the case on hand, it is clear that the Speaker, in the
 original order, left the question of disqualification undecided.
 Thereby he has failed to exercise the jurisdiction conferred on
                                                                          D
 him by para 6 of the Tenth Schedule. Such a failure to exercise
 jurisdiction cannot be held to be covered by the shield of para 6 of
 the Schedule. He has also proceeded to accept the case of a split
 based merely on a claim in that behalf. He has entered no finding
 whether a split in the original political party was prima facie proved
                                                                          E
 or not. This action of his, is apparently based on his understanding
 of the ratio of the decision in Ravi S. Naik case [1994 Supp (2)
 SCC 641 : (1994) 1 SCR 754]. He has misunderstood the ratio
 therein. Now that we have approved the reasoning and the
 approach in Jagjit Singh case [(2006) 11 SCC 1 : (2006) 13               F
 Scale 335] and the ratio therein is clear, it has to be held that the
 Speaker has committed an error that goes to the root of the matter
 or an error that is so fundamental, that even under a limited judicial
 review the order of the Speaker has to be interfered with. We
 have, therefore, no hesitation in agreeing with the majority of the      G
 High Court in quashing the decisions of the Speaker.
 41. In view of our conclusions as above, nothing turns on the
 arguments urged on what were described as significant facts and
 on the alleged belatedness of the amendment to the writ petition.
                                                                          H
154             SUPREME COURT REPORTS                            [2020] 2 S.C.R.


A            It is indisputable that in the order that was originally subjected to
             challenge in the writ petition, the Speaker specifically refrained
             from deciding the petition seeking disqualification of the 13 MLAs.
             On our reasoning as above, clearly, there was an error which
             attracted the jurisdiction of the High Court in exercise of its power
B            of judicial review.”
                                                             [Emphasis Supplied]
              21. Finding that the life of the Assembly was about to end and
      that if the 13 members were found to be disqualified their continuance in
C     the Assembly even for a day would be illegal and unconstitutional, and
      that their holding of office as Ministers would also be illegal, the Court
      stated that it was bound to protect the Constitution and its values, and
      the principles of democracy, which is a basic feature of the Constitution,
      and then went on to declare that the writ petition will stand allowed with
D
      a declaration that the 13 members who met the Governor on 27.08.2003
      stand disqualified from the U.P Legislative Assembly w.e.f. 27.08.2003
      on the ground contained in paragraph 2(1)(a) of the Tenth Schedule.
             22. It is clear from a reading of the judgment in Rajendra Singh
E     Rana (supra) and, in particular, the underlined portions of paragraphs 40
      and 41 that the very question referred by the Two Judge Bench in S.A.
      Sampath Kumar (supra) has clearly been answered stating that a failure
      to exercise jurisdiction vested in a Speaker cannot be covered by the
      shield contained in paragraph 6 of the Tenth Schedule, and that when a
F     Speaker refrains from deciding a petition within a reasonable time, there
      was clearly an error which attracted jurisdiction of the High Court in
      exercise of the power of judicial review.
             23. Indeed, the same result would ensue on a proper reading of
G     Kihoto Hollohan (supra). Paragraphs 110 and 111 of the said judgment
      when read together would make it clear that what the finality clause in
      paragraph 6 of the Tenth Schedule protects is the exclusive jurisdiction
      that vests in the Speaker to decide disqualification petitions so that nothing
      should come in the way of deciding such petitions. The exception that is
H     made is also of importance in that interlocutory interference with decisions
    KEISHAM MEGHACHANDRA SINGH v. THE HON’BLE SPEAKER                           155
       MANIPUR LEGISLATIVE ASSEMBLY [R. F. NARIMAN, J. ]


of the Speaker can only be qua interlocutory disqualifications or               A
suspensions, which may have grave, immediate, and irreversible
repercussions. Indeed, the Court made it clear that judicial review is not
available at a stage prior to the making of a decision by the Speaker
either by a way of quia timet action or by other interlocutory orders.
                                                                                B
      24. A quia timet action has been described in Black’s Law
Dictionary as follows:
      “Quia Timet. Because he fears or apprehends. In equity practice,
      the technical name of a bill filed by a party who seeks the aid of a
      court of equity, because he fears some future probable injury to          C
      his rights or interests, and relief granted must depend on
      circumstances.”
       25. The leading judgment referred to insofar as quiatimetactions
are concerned is the judgment in Fletcher v. Bealey (1884) 28 Ch. D.            D
688. In this case, a quia timet action was asked for to interdict the tort
of nuisance in order to prevent noxious liquid from flowing into a river.
Pearson, J. after referring to earlier judgments on quia timet action then
held at page 698:
      “I do not think, therefore, that I shall be very far wrong if I lay it    E
      down that there are at least two necessary ingredients for a quia
      timet action. There must, if no actual damage is proved, be proof
      of imminent danger, and there must also be proof that the
      apprehended damage will, if it comes, be very substantial. I should
                                                                                F
      almost say it must be proved that it will be irreparable, because, if
      the danger is not proved to be so imminent that no one can doubt
      that, if the remedy is delayed, the damage will be suffered, I think
      it must be shewn that, if the damage does occur at any time, it will
      come in such a way and under such circumstances that it will be           G
      impossible for the Plaintiff to protect himself against it if relief is
      denied to him in a quia timet action.”
      26. This statement of the law has subsequently been followed by
recent English decisions reported as London Borough of Islington v.
                                                                                H
156            SUPREME COURT REPORTS                            [2020] 2 S.C.R.


A     Margaret Elliott [2012] EWCA Civ. 56 (See paragraph 30) and Vastint
      Leeds BV v. Persons Unknown [2018] EWHC 2456 (Ch.) in which
      a quia timet injunction was described in the following terms:
            “26. Gee describes a quiatimet injunction in the following terms
B           [Gee, Commercial Injunctions, 6th ed (2016) at [2-035]]:
            “A quia timet (since he fears) injunction is an injunction granted
            where no actionable wrong has been committed, to prevent the
            occurrence of an actionable wrong, or to prevent repetition of an
            actionable wrong.””
C
            The decision in Fletcher (supra) was referred to in approval in
      paragraph 30 of the aforesaid judgment.
            27. The decision in Fletcher (supra) was also referred to by this
      Court in Kuldip Singh v. Subhash Chander Jain (2000) 4 SCC 50 as
D     follows:
            “6. A quia timet action is a bill in equity. It is an action preventive
            in nature and a specie of precautionary justice intended to prevent
            apprehended wrong or anticipated mischief and not to undo a
E           wrong or mischief when it has already been done. In such an
            action the court, if convinced, may interfere by appointment of
            receiver or by directing security to be furnished or by issuing an
            injunction or any other remedial process. In Fletcher v. Bealey
            [(1885) 28 Ch D 688 : 54 LJ Ch 424 : 52 LT 541] , Mr Justice
F           Pearson explained the law as to actions quia timet as follows:
            “There are at least two necessary ingredients for a quia timet
            action. There must, if no actual damage is proved, be proof of
            imminent danger, and there must also be proof that the apprehended
            damage will, if it comes, be very substantial. I should almost say it
G
            must be proved that it will be irreparable, because, if the danger is
            not proved to be so imminent that no one can doubt that, if the
            remedy is delayed the damage will be suffered, I think it must be
            shown that, if the damage does occur at any time, it will come in
            such a way and under such circumstances that it will be impossible
H
    KEISHAM MEGHACHANDRA SINGH v. THE HON’BLE SPEAKER                            157
       MANIPUR LEGISLATIVE ASSEMBLY [R. F. NARIMAN, J. ]


       for the plaintiff to protect himself against it if relief is denied to    A
       him in a quia timet action”.”
        28. A reading of the aforesaid decisions, therefore, shows that
what was meant to be outside the pale of judicial review in paragraph
110 of Kihoto Hollohan (supra) are quia timet actions in the sense of            B
injunctions to prevent the Speaker from making a decision on the ground
of imminent apprehended danger which will be irreparable in the sense
that if the Speaker proceeds to decide that the person be disqualified, he
would incur the penalty of forfeiting his membership of the House for a
long period. Paragraphs 110 and 111 of Kihoto Hollohan (supra) do                C
not, therefore, in any manner, interdict judicial review in aid of the Speaker
arriving at a prompt decision as to disqualification under the provisions
of the Tenth Schedule. Indeed, the Speaker, in acting as a Tribunal under
the Tenth Schedule is bound to decide disqualification petitions within a
reasonable period. What is reasonable will depend on the facts of each           D
case, but absent exceptional circumstances for which there is good reason,
a period of three months from the date on which the petition is filed is
the outer limit within which disqualification petitions filed before the
Speaker must be decided if the constitutional objective of disqualifying
persons who have infracted the Tenth Schedule is to be adhered to. This          E
period has been fixed keeping in mind the fact that ordinarily the life of
the Lok Sabha and the Legislative Assembly of the States is 5 years and
the fact that persons who have incurred such disqualification do not
deserve to be MPs/MLAs even for a single day, as found in Rajendra
                                                                                 F
Singh Rana (supra), if they have infracted the provisions of the Tenth
Schedule.
      29. In the years that have followed the enactment of the Tenth
Schedule in 1985, this Court’s experience of decisions made by Speakers
generally leads us to believe that the fears of the minority judgment in         G
Kihoto Hollohan (supra) have actually come home to roost. Verma, J.
had held :
       “181. The Speaker being an authority within the House and his
       tenure being dependent on the will of the majority therein, likelihood
                                                                                 H
158      SUPREME COURT REPORTS                            [2020] 2 S.C.R.


A     of suspicion of bias could not be ruled out. The question as to
      disqualification of a Member has adjudicatory disposition and,
      therefore, requires the decision to be rendered in consonance with
      the scheme for adjudication of disputes. Rule of law has in it
      firmly entrenched, natural justice, of which, rule against bias is a
B     necessary concomitant; and basic postulates of rule against bias
      are: nemo judex in causa sua — ‘A Judge is disqualified from
      determining any case in which he may be, or may fairly be
      suspected to be, biased’; and ‘it is of fundamental importance
      that justice should not only be done, but should manifestly and
C
      undoubtedly be seen to be done.’ This appears to be the underlying
      principle adopted by the framers of the Constitution in not
      designating the Speaker as the authority to decide election disputes
      and questions as to disqualification of members under Articles
D     103, 192 and 329 and opting for an independent authority outside
      the House. The framers of the Constitution had in this manner
      kept the office of the Speaker away from this controversy. There
      is nothing unusual in this scheme if we bear in mind that the final
      authority for removal of a Judge of the Supreme Court and High
E     Court is outside the judiciary in the Parliament under Article 124(4).
      On the same principle the authority to decide the question of
      disqualification of a Member of Legislature is outside the House
      as envisaged by Articles 103 and 192.
      182. In the Tenth Schedule, the Speaker is made not only the sole
F
      but the final arbiter of such dispute with no provision for any appeal
      or revision against the Speaker’s decision to any independent
      outside authority. This departure in the Tenth Schedule is a reverse
      trend and violates a basic feature of the Constitution since the
      Speaker cannot be treated as an authority contemplated for being
G
      entrusted with this function by the basic postulates of the
      Constitution, notwithstanding the great dignity attaching to that
      office with the attribute of impartiality.”


H
    KEISHAM MEGHACHANDRA SINGH v. THE HON’BLE SPEAKER                           159
       MANIPUR LEGISLATIVE ASSEMBLY [R. F. NARIMAN, J. ]


       30. It is time that Parliament have a rethink on whether                 A
disqualification petitions ought to be entrusted to a Speaker as a quasi-
judicial authority when such Speaker continues to belong to a particular
political party either de jure or de facto. Parliament may seriously consider
amending the Constitution to substitute the Speaker of the Lok Sabha
and Legislative Assemblies as arbiter of disputes concerning                    B
disqualification which arise under the Tenth Schedule with a permanent
Tribunal headed by a retired Supreme Court Judge or a retired Chief
Justice of a High Court, or some other outside independent mechanism
to ensure that such disputes are decided both swiftly and impartially,
                                                                                C
thus giving real teeth to the provisions contained in the Tenth Schedule,
which are so vital in the proper functioning of our democracy.
       31. It is not possible to accede to Shri Sibal’s submission that this
Court issue a writ of quo warranto quashing the appointment of the
Respondent No.3 as a minister of a cabinet led by a BJP government.             D
Mrs. Madhavi Divan is right in stating that a disqualification under the
Tenth Schedule from being an MLA and consequently minister must
first be decided by the exclusive authority in this behalf, namely, the
Speaker of the Manipur Legislative Assembly. It is also not possible to
accede to the argument of Shri Sibal that the disqualification petition be      E
decided by this Court in these appeals given the inaction of the Speaker.
It cannot be said that the facts in the present case are similar to the facts
in Rajinder Singh Rana (supra). In the present case, the life of the
legislative assembly comes to an end only in March, 2022 unlike in
                                                                                F
Rajinder Singh Rana (supra) where, but for this Court deciding the
disqualification petition in effect, no relief could have been given to the
petitioner in that case as the life of the legislative assembly was about to
come to an end. The only relief that can be given in these appeals is that
the Speaker of the Manipur Legislative Assembly be directed to decide
                                                                                G
the disqualification petitions pending before him within a period of four
weeks from the date on which this judgment is intimated to him. In case
no decision is forthcoming even after a period of four weeks, it will be
open to any party to the proceedings to apply to this Court for further
directions/reliefs in the matter.                                               H
160                SUPREME COURT REPORTS                    [2020] 2 S.C.R.


A             32. The impugned judgment of the High Court dated 23.07.2019
      is set aside. The Civil Appeals arising out of SLP(C) No. 18659 of 2019
      and SLP(C) No. 18763 of 2019 are partly allowed and the Civil Appeals
      arising out of SLP(C) No. 23703 of 2019 and SLP(C) No. 24146 of
      2019 are dismissed in terms of this judgment. No order as to costs.
B

      Ankit Gyan                                            Appeals disposed of.




C




D




E




F




G




H