Holding

The Constitution expressly authorises a multi‑member Election Commission and the statutory provisions amending the Chief Election Commissioner and other Election Commissioners (Condition of Service) Act, including Sections 9 and 10, are constitutionally valid.

Summary

The case concerned the constitutional validity of the 1993 Ordinance (later Act No. 4 of 1994) that amended the Chief Election Commissioner and other Election Commissioners (Condition of Service) Act, 1991 by fixing the number of Election Commissioners at two and inserting provisions on how the Commission would transact its business. The incumbent Chief Election Commissioner and another petitioner challenged the ordinance, the subsequent presidential notifications and the appointments of the two Election Commissioners as arbitrary, mala fide and ultra‑vires Article 324 of the Constitution. The Supreme Court examined the scope of Article 324(2) and (5), the distinction between the Chief Election Commissioner and other Commissioners, and the statutory scheme under Sections 9 and 10 governing unanimity and majority decision‑making. Relying on the constitutional scheme, the Court held that the Constitution expressly permits a multi‑member Election Commission and that the statutory provisions on service conditions and transaction of business are within legislative competence. Consequently, the ordinance, the notifications and the appointments were upheld and the writ petitions dismissed. The Court also clarified that the Chief Election Commissioner, while a permanent incumbent and Chairman, does not enjoy a higher status that would render other Commissioners merely ornamental.

Issues considered

Whether the President’s promulgation of the 1993 Ordinance and the fixing of two Election Commissioners under Article 324(2) is ultra vires the Constitution
Whether Sections 9 and 10 of the amended Act, prescribing unanimity and majority decision‑making, are inconsistent with Article 324 and violate Article 14
Whether the distinction in service conditions and removability between the Chief Election Commissioner and other Election Commissioners confers a higher status on the CEC contrary to the scheme of Article 324
Whether the amendment constitutes mala fide legislative action infringing the independence of the Election Commission

Subjects

Election CommissionArticle 324Chief Election Commissionermulti‑member commissionOrdinanceconstitutional validityservice conditionsmajority decisionunanimitydemocratic principles

Judgment

A T.N. SESHAN, CHIEF ELECTION COMMISSIONER "'!'-
'-.
OF INDIA ETC.
v.
UNION OF INDIA AND OTHERS

JULY 14, 1995
B
[A.M. AHMADI, CJ, J.S. VERMA N.P. SINGH, S.P. BARUCHA
AND M.K. MUKHERJEE, JJ.] ,,
Constitution of India: Clause (1) of Art. 123.
c
Promulgation of Ordinance-Exercise of Power by the President, under
Art 123( 1) of the Constitution of India-Ordinance (No. 32 of 1993) entitled
"The Chief Election Commissioner & other Election Commissioners (Condi-
tions of Seroice) Amendment Ordinance 1993'~ amended, substituted, and
inserted certain provisions to the "Chief Election Commissioner & other
D Commissioners (Condition of Seroice) Act 1991''-Detennining the conditions
of seroice of the Chief Election Commissioner and other Election Commis-
sioners and to provide for the procedure for transaction of the business by the

E
Election Commission and for matters connected therewith or incidental
thereto. ...
Constitution of India-Art 324. ·

Superintendence, direction and control of elections to be vested in an
Election Commission Exercise of Powers under Art. 324(2), of the Constitu-
tion of India-Number of Election Commissioner, beside the CEC was fixed
F at tw~By subsequent notification, two ECs were appointed-Validity of the
Ordinance, notifications and the consequential orders and appointments-
Whether arbitrary and ultra vires the Constitution.

Interpretation of clause 2 of Article 324-Whether envisages a multi-
member Election <;:ommission. Distinction between CEC and other ECs-
G
Whether essentially on account of their tenure-By virtue of Ordinance, CEC
and ECs are placed at par in the matter of salary etc.

First proviso to clause (5) of Art. 324-Whether the type of ir-
"' ,......
removability con/e1Ted on the Chief Election Commissioner is an indicia for
H confening a higher status on him vis-a-vis the otherElection Commissioners.
106
T.N.SESHAN v. U.0.1. 107

in a multi-member body-Wliether Chief Election Commission is obliged to A
act as its Chaimwn-Fzmction of Election Commissioner-Wliether merely
advis01y--ldea of exclusive decision making power in the Chief Election
Commissioner-Not conducive to democratic principles.

-- The Chief Election Commissioner and other Election Commissioners
(Condition of Service) Ordinance, (now Act) 1993.

Chapter III of the Chief Election Commissioner and other Election
B

Commissioners (Condition of Service) Act, 1993,-Sec. 9, 1<>--Constitutional
validity of-Question of legislative competence-Clauses 2 and 5 of Article
324, contemplates and expressly provides a statute for appointment of Elec- C
tion Commissioners and for their conditions of service-Hence provisions to
that effect cannot be challenged as unconstitutional.

Status of Chief Election Commissioner-Whether akin to a judge of the
Supreme Court of India-The position of Chief Election Commission in the
Wa"ant of precedence-Whether requires reconsideration-Government D
should not confer equivalence ·or interfere with the WWTant of Precedence, if
it is likely to affect the position of High Court and Supreme Court Judges,
however pressing the demand may be, without first seeking the views of the
Chief Justice of India.

By an amendment Ordinance (now Act) entitled "The Chief Election
E
Commissioner and other Election Commissioners (Condition of Service)
Ordinance, 1993." (hereinafter referred to as the Ordinance) the "Chief
Election Commissioner and other Commissioners (Condition of Service
Act) 1991" was sought to be amended and accordingly the number of
Election Commissioners, besides the Chief Election Commissioner was F
fixed two. Subsequently, in exercise of its powers under Clause 2 Art. 324,
the President of India, by notification dated 1.10.1993 appointed the two
Election Commissioners.

The validity of· the said Ordinance as well as the consequential
notification was assailed by the incumbent Chief Election Commissioner G
and another, as being arbitrary and unconstitutional. Writ Petitions were
filed in the Supreme Court for a declaration that the ordinance was
arbitrary, ultra vires the Constitution and hence void and also for quash-
ing the said notification and the appointments of the two Election Com-
missioners. H
108 SUPREME COURT REPORTS (1995] SUPP. 2 S.C.R.

A In support of the petitions, it was contended that (a) .The intention
behind issuing the ordinance was purely ma/aft.de, in order to sideline the
Chief Election Commissioner and to erode his authority, so that the ruling
party at ·the centre could extract favourable orders by using the services
of the newly appointed Election Commissioner. (b) Article 324 of the
Constitution, does not give any power to the Parliament to frame rules for
B transaction of business of the Election Commission. Hence, Sec. 9 and 10
of the ordinance are inconsistent with the scheme underlying article 324
and therefore ultra vires the Constitution. Also the provisions laid down
by the said Sections are arbitrary and unworkable, (C) The notification
fixing the number of Election Commissioners at two is arbitrary and
c violative of Article 14 of the Constitution.

The respondents on the other hand, resisted the petitions contending
that:

(a) The language of Article 324(2) envisages a multi- member Com-
D mission and therefore, any excise undertaken to achieve that objective
would be consistent with the scheme of the said constitutional provision
and could therefore never be branded as malafide or ultra vires the.
Constitution. (b) The decision to convert the Election Commission into a
multi member body had not connection with the alleged discomfiture of
E the ruling party at the centre on account of the stiff attitude of the Chief
Election Commissioner. (c) The Ordinance was framed keeping in view the
observations made by this Court in the case of S.S. Dhanoa v. Union of
India and Ors., [1991) 3 SCC 567. (d) A multi- member body would not
have been able to function Without a supporting ~tatute providing for,
dealing with different situations likely to arisen the course of transaction
F of its business. A provision that lays down the rule of majority in the event
of a difference of opinion amongst its members is, therefore consistent with
the democratic principles and can never be described as arbitrary or ultra
vires Article 14 of the Constitution.

G Dismissing the writ petitions, this Court

HELD: 1.1. Our constitution makers entrusted the responsibility to
hold free and fair elections and the task of conducting such elections in
the country to an independent body, insulated from political and/or exeeu-
tive interference. This objective is achieved by setting up an Election
H Commission, a permanent body under Article 324(1) of the Constitution.
T.N.SESHAN v. U.0.1. 109

Clause (2) of Art. 324 provides that the said Commission shall consist of A
the Chief Election Commissioner and such number of Election Commis-
sioners, if any, as the President may fix from time to time. [119-E-G]

1.2. The concept of plurality is writ large on the face of Article 324,
Clause (2) whereof clearly envisages a multi- member Election Commis-
sion comprising of the Chief Election Commissioner and one or more B
Election Commissioners. [121-H; 122-A]

S.S. Dhanoa v. Union of India and Ors., [1991) 3 SCC 567, referred
to.

2.1. It may be that if the Election Commissioner is a single member
c
body, the decisions may have to be taken by the Chief Election Commis-
sioner but still they would be decisions of the Election Commissioner and
not of the individual. No body can be above the institution which he is

-
--... supposed to serve. To project the individual as mightier than the institu-
tion would be a grave mistake. Therefore even if the Election Commis-
sioner is a single member body, the Chief Election Commissioner is merely
a functionary of that body; to put it differently the alter ego of the
D

Commissioner and no more. [129-B-D]

2.2. If the Election Commission is a multi-member body, the Chief E
Election Commissioner is obliged to act as its Chairman. The functions of
the Chairman would, therefore be to do all that is necessary for smooth
transaction of its business. He must conduct himself in such a manner so
that he is able to win the confidence of all his colleagues on the Commis-
sioner carry them along with him. This, a Chairman might find difficult
to achieve if he thinks that othel,"s who are members of Commission are F
his subordinates. [129-D-H]

Concise Oxford Dicti01wy, Black's Law Dictionary 6th Ed. Page 230,
Ballentines Law Dictionary 3rd Ed. Pages 189-190, Webster's New 20th
Century Dictionary, unabridged, 2nd Ed. Page 299 and Aiyer's Judicial G
Dictionary 11th Ed. Page 238-Referred to, for the meaning of'Chairman".

3. The Election Commissioner discharges a public function. The func-
tions of the Election Commission are essentially administrative but there
certain adjudicative and legislative functions as well. Besides administra-
tive functions it may be called up to perform quasi judicial duties and H
110 SUPREME COURT REPORTS [1995] SUPP. 2 S.C.R.

undertake subordinate legislation making functions. Election Commis·
sioners form a part of the Election Commission unlike the Regional Com·
missioners, and hence have a say in decision making. If the Chief Election
Commissioner is considered to be a superior in the sense that his word is
final, he would render the other Election Commissioners non-functional or
ornamental. Such an intention is difficult, to cull out from Art. 324 of the
B Constitution of attribute it of our Constitution makers. [129-H; 130-C-E]

M.S. Gill v. Chief Election Commissioner, [1978] 2 SCR 272, referred
to.

The distinguishing feature between ·the position of the Chief
c Election4.1.Commissioner and the Election Commissioners as is envisaged
in Art. 324 is essentially on account of their tenure. [130-E,F]

4.2. The first proviso to clause (5) of Art. 324 of the Constitution lays
down that the conditions of service in case of the Chief Election Commis·
D sioner cannot be varied to his disadvantage after his appointment. Such a
protection is not extended to the Election Commissioners. That is
presumably because the posts of Election Commissioner are temporary in
character. But even if it is not so, that feature al~ne cannot lead to the
conclusion that the final word in all matters lies with Chief Election
Commissioner. [126-E-F]
E
4.3. The second ground relates to removability. In case of the Chief
Election Commissioner, he can be removed from office in like manner and
on the like ground as a Judge of the Supreme Court whereas the Election
Commissioners can be removed on the recommendation of the Chief
F Election Commissioner. That, however, is not an indicia for conferring a
higher status on the Chief Election Commissioner. The Chief Election
Commissioner is intended to be permanent incumbent and therefore in
order to preserve and safeguard his independence, he had to be treated
differently. There cannot be an Election Commission without a Chief
Election Commissioner, while that is not the case with the other Election
G Commissioners. In the very nature of things. The Election Commissioners
could not be conferred the type of irremovability that is best11wed ·on the
Chief Election Commissioner. If that were to be done, the entire scheme
. of Art. 324 would have to undergo a change. But the fact the Chief Election
Commissioner is a permanent incumbent cannot confer on him a higher
H status than the Election Commissioner. [126-F-H; 127-A, B]
T.N.SESHAN v. U.0.1. 111

5. Neither Article 324 nor any other provision in the Constitution A
expressly states how a multi-member Election Commissioner will transact
its business nor has any convention developed in this behalf. That is why
keeping in mind the bitter experience of the past of which a reference has
been made in Dhanoa's case, this Court, thought that the gap could be
filled by an appropriate statutory provision, thereby making legislative
B
interference necessary in this regard. Taking a clue from the said decision,

- the President of India promulgated the ordinance whereby a new chapter
comprising Sec. 9 and 10 was added to the Act, indicating how the Election
Commission will transact its business. Although the said provisions have
manifested the hope that the Commission will be able to take decisions
with one voice, in case that hope is belled, the rule majority must come C
into play. Section 10 clearly provides for unanimity. Even if it is to be
assumed that the Commission alone was competent to lay down how it
would transact its business, it would be required to follow the same pattern
as is set out in Sec. 10. [131-A-B, F]
D
6. Although some of the service conditions of the Chief Election
Commissioner are akin to those of the Supreme Court Judges, the Chief
Election Commissioner could not legitimately claim to be equated with a
Supreme Court Judge. Maintenance of the status of the Judges of the
Supreme Court and the High Court is highly desirable in the national
interest. Personnel belonging to other for a claim equation to High Court E
and Supreme Court judges merely because certain jurisdiction earlier
exercised by those courts are transferred to them, not realising the distinc-
tion between constitutional and statutory functionaries. The Government,
t'1erefore, should not confer equivalence or interfere with the Warrant of
Precedence, if it is likely to affect the position of the High Court and F
Supreme Court Judges without first seeking the view of the Chief Justice
oflndia. [139-A, B, F-H; 140-A]

7. In the facts and circumstances of the present case the argument
that the imugned provisions constitute a fraud on the constitution inas- G
much as they are designed and calculated to defeat the very purpose of
having an Election Commission is begging the question. [132-E, F]

Both clauses (2) and (5) of Article 324 contemplate a statute for the
appointment of Election Commissioners and for their conditions of ser-
vice. The impugned law provides for both these matters and provisions to H
112 SUPREME COURT REPORTS [1995] SUPP. 2 S.C.R.

A that effect cannot be challenged as unconstitutional since they are express-
ly provided for by Clauses (2) and (5) of Art. 324. Once the provision for
-
the Constitution of a multi-member Commission is unassailable,
provisions incidental thereto cannot be challenged. [138-D]

8. The impugned ordinance, notification and the consequential or-
B ders and appointments are upheld in their entirety. [140-F]

CIVIL ORIGINAL JURISDICTION : Writ Petition (C) No. 805 of
1993 Etc. Etc.

(Under Article 32 of the Constitution of India.)
c
M.K. Banerjee, Attorney General of India, M.Chandra Sekhar, Ad-
ditional Solicitor General, G. Ramaswamy, N.A. Palkhivala, Ram Jeth-
malani, O.P. Sharma P.P. Rao, Soli J. Sorabjee, K.K. Venugopal, K.
Parasaran, AK. Ganguli, G. Rajagopal, S. Murlidhar, Sanjay Hegde, N.L.
D Ganapathi, S. Walia, Mohit Mathur, H. Devarajan, Niranjan Reddy,
Shimona Khanna, Abha R. Sharma, Ms. Kamini Jaiswal, Ranjan Dewivedi,
R.S. Sharma, H.D. Shourie (In-person) for the Petitioner in W.P. No.
825/93, M.M. Kashyap, N.N. Gooptu, H.K. Puri, AV. Rangam, ARan-
ganadhan, Sumant Bhardwaj, AS. Bhasme, S.K. Ningomban, Sunil Dorga,
E.R. Kumar, Gopal Jain, W.C. Chopra, Pankaj Chopra, Amariarputham,
E Aruna Mathur, P.R. Seetharaman, Ms. Neeta Agrawal, N. Janardhanan,
K.R. Nagaraja, E.C. Agarwala, Mahesh Agarwal, Atul Sharma, Purnima
Bhat Kak, AV. Palli, Dr. Subramian Swamy, (In-person) for Respond~nt
in C.A. No. 504/94., Mukul Mudgal, Ms. Indu Malhotra, Ms. Shirin
Khajuria, K.V. Vishwanathan, Ms. A Subhashini, P. Parmeshwaran, Sushi!
Prakash, A. Subbarao, Navin Prakash and R.B. Misra for the appearing
F parties.

The Judgment of the Court was delivered by

AHMADI, CJ. The President of India, in exercise of powers con-
G ferred upon him by clause (1) of Article 123 of the Constitution of India,
promulgated an Ordinance (No. 32 of 1993) entitled "The Chief Election
Commissioner and other Election Commissioners (Condition of Service)
amendment Ordinance, 1993" (hereinafter called 'the Ordinance') to
amend "The Chief Election Commissioner and other Commissioners
(Condition of Service) Act, 1991" (hereinafter called 'the Act'). This Or-
H dinance was published in the Gazette of India on October 1, 1993. Before
T.N.SESHAN v. U.0.1. (AHMADI, J.] 113

we notice the amendments made in the 1991 Act, by the said ordinance it A
may be appropriate to notice the provisions of the 1991 Act. As the long
title of the Act suggests it lays down the conditions of service of the Chief
Election Commissioner (hereinafter called 'the CEC') and Election Com-
missioners (hereinafter called 'the ECs') appointed under article 324 of the
Constitution of India. Section 3(1) provides that, the CEC shall be paid a
B
salary which is equal to the salary of a judge of the Supreme Court of India.
Section 3(2) says that an EC shall be paid a salary which is equal to the
salary of a Judge of a High Court. Section 4 lays down the term of office
of the CEC and ECs to be six years from the date on which the incumbent,
assumes charge of his office provided that the incumbent shall vacate his
office on his attaining, in the case of the CEC, the age of 65 years and the c
EC the age of 62 years, notwithstanding the fact that the term of office is
for a period of six years. Section 8 extends the benefit, of travelling
allowance, rent free residence, exemption from payment of income-tax on
the valve of such rent free residence, conveyance facility, sumpulary al-
lowance, medical facilities, etc., as applicable to a Judge of the Supreme D
Court or a Judge of the High Court to the CEC and the EC, respectively.
By the Ordinance the title of the Act was sought to be amended by
substituting the words "and to provide for the procedure for transaction of
business by the Election Commission and for matters" for the words "and
for matters". By the substitution of these words the long title to the Act,
got, further elongated as an Act to determine the conditions of service of E
the CEC and other ECs and to provide for the procedure for transaction
of business by the Election Commission and for matters connected there-
with or incidental thereto. In section 1 of the principal Act for the words
and brackets "the Chief Election Commissioner and other Election Com-

- missioners (Condition of Service)" the words and brackets "the Election
Commission Conditions of Service of Election Commissioner and Trans-
action of Business)" came to be substituted with the result that the
p

amended provision read as the Election Commission (Condition of Service
of Election Commissioners and Transaction of Business) Act,' ~91. The
definition clause in section 2 also underwent a change, in that, the extant,
clause (b) came to be renumbered as clause (c) and a new clause (b) came G
to be substituted by which the expression "Election Commission" came to
be defined as Election Commission referred to in Article ~24 of the
Constitution of India. Consequent changes were also made elsewhere. In
sub-section (1) of section 3, after the words "Chief Election Commissioner",
H
114 SUPREME COURT REPORTS [1995] SUPP. 2 S.C.R.

A the words "and other Election Commissioners" came to be inserted with
the result they came to be placed at par in regard to salary payable to them
and sub-section (2) came to be omitted. In section 4 the first proviso came
to be substituted as under :

"Provided that where the Chief Election Commissioner or an
B Election Commissioner attains the age of 65 years before the expiry
of the said term of six years, he shall vacate his office on the date
on which he attains the said age."

Thus the age of superannuation of both the CEC and the ECs was fixed
C at 65 years. If they attain the age of 65 years before completing their tenure
of six years they would in view of the proviso have to vacate office on
attaining the age of 65 years. In Section 6, sub-section (2), after the words
"Chief Election Commissioner" the words "or an Election Commissioner"
came to be inserted and for the words "sub-section (4)" the words "sub-sec-
tion (3)" came to be substituted. It further provided for the deletion of
D sub-section (3) and for renumbering sub-section (4) as sub-section (3) and
provided that in clause (b) the words "or as the case may be, 62 year" shall
be omitted. After section 8 in the Principal Act, by the Ordinance a new
Chapter came to be inserted comprising of two provisions, namely, Sections
9 and 10. The new Chapter so inserted is relevant for our purpose and may
E be reproduced at this stage :

"CHAPTER III

TRANSACTION OF BUSINESS OF ELECTION COMMIS-
SION
F
9. The business of the Election Commission shall be transacted in·
accordance with the provisions of this Act.

(10)(1) The Election Commission may, by unanimous decision,
regulate the procedure for transaction of the business as also
G allocation of the busin~ss amongst the Chief Election Commis-
sioner and other Election Commissioners.

(2) Save as provided in sub-section (1) all business of the Election
Commission shall, as far as possible, be transacted unanimously.

(3) Subject to the provisions of sub section (2), if the Chief Election
T.N.SESHAN v. U.0.1. [AHMADI, J.] 115

Commissioner and other Election Commissioners differ in opinion A
on any matter, such matter shall be decided according to the
opinion of the majority."

On the day of publication of the Ordinance, 1st October, 1993, the
President of India, in exercise of powers conferred by clause 2 of Article
324 of the Constitution of India, fixed, until further orders, the number of B
Election Commissioners (other than the CEC) at two. By a further notifica-
tion of even date the President was pleased to appoint Mr. M.S. Gill and
Mr. G.V.G. Krishnamurthy as Election Commissioners with effect from 1st
October, 1993.
c
The first salvo was fired by Cho. S.Ramaswamy, a journalist, on 13th
October, 1993. By a Writ Petition (Civil) No. 791 of 1993 he prayed for a
declaration that the Ordinance was arbitrary, unconstitutional and void and
for issuance of a writ of certiorari to quash the notifications fixing the
number of Election Commissioners at two the appointments of Mr. M.S. D
Gill and Mr. G.V.G. Krishnamurthy made thereunder. This was followed
by Writ Petition No. 805 of 1993 by the incumbent CEC himself claiming
similar reliefs on 26th October, 1993. Two other writ petitions were also
filed questioning the validity of the Ordinance and the notifications
referred to earlier. Three of these writ petition came up for preliminary
hearing on November 15, 1993. While admitted the writ petitions and E
direction rule to issue in all of them, in the writ petition filed by the CEC
notice on the application for interim stay as well as for production of
documents was ordered to issue and an ad-interim order to the following
effect was passed :
F
"Until further orders, to ensure smooth and effective working of
the Coyunission and also to avoid confusion both in the administra-
tion as well as in the electoral process, we direct that the Chief
Election Commissioner shall remain in complete overall control of
the Commission's work. He may ascertain the views of other
Commissioners or such of them as he chooses, on the jssues that G
may come up before the Commission from time to time. However,
he will not be bound their views. It is also made clear that the
Chief Election Commissioner alone will be entitled to issue instruc-
tions to the Commission's staff as well as to the outside agencies
and that no other Commissioner will issue such instructions." H
116 SUPREME COURT REPORTS (1995) SUPP. 2 S.C.R.

A By a subsequent order dated 15.12.1993, after hearing the learned Attorney
General for the Union of India and the learned Advocates General for the
States of Maharashtra and West Bengal , the Court directed that all the
State Governments who want to be heard will be heard though their
counsel and further directed that the interim order shall continue till
further orders. Lastly, it observed that since questions involved related to
B the interpretation of Article 324 in particular, the matters should be placed
before a Constitution Bench.

During the pendency of the aforesaid writ petitions, the Ordinance
became an Act (Act No.4of1994) of 4th January, 1994 without any change.
c Before we proceed further it would be proper to notice Article 324
,of the Constitution. It reads as under :

"324. Superintendence, direction and control of elections to be
vested in an Election Commission.-- (1) The superintendence,
D direction and control of the preparation of the electoral rolls for,
and the conduct of, all elections to Parliament and to the legisla-
ture of every state and of elections to the offices of President and
Vice-President held under this Constitution shall be vested in a
Commission (referred to in this Constitution as the Election Com-
E mission).

(2) The Election Commission shall consist of the Chief Election
Commissioner and such number of other Election Commissioners,
if any, as the President may from time to time fix and the appoint-
~ent of the Chief Election Commissioner and other Election
F Commissioners shall, subject to the provisions of any law made m
that behalf by Parliament be made by the President.
e
(3) When any other Election Commissioner is so appointed the
Chief Election Commissioner shall act, as the Chairman of the
Election Commission.
G
(4) Before each general election to the House of the People and
to the Legislative Assembly of each State, and before the first
general election and thereafter before e~ch biennial election to the
legislative Council of each state having such Council, the President,
H may also appoint after consultation with the Election Commission
T.N.SESHAN v. U.0.1. [AHMADl,J.] 117

such Regional Commissioners as he may consider necessary to A
assist the Election Commission in the performance of the functions
conferred on the Commission by clause (1).

(5) Subject to the provisions of any law made by Parliament, the
conditions of service and tenure of office the Election Commis-
sioners · and the Regional Commissioners shall be such as the B
President may by rule determine :

Provided that the Chief Election Commissioner shall not be
removed from his office except in like manner and on the like
grounds as a Judge of the Supreme Court and the conditions of C
service of the Chief Election Commissioner shall not be varied to
his disadvantage after his appointment :

Provided further that any other Election Commissioner or a
Regional Commissioner shall not be removed from office except
on the recommendation of the Chief Election Commissioner. D

(6) The President, or the Government of a State shall, when so
requested by the Election Commission, make available to the
Election Commission or to a Regional Commissioner such staff as
may be necessary for the discharge of the functions. conferred on E
the Election Commission by clause (1)."

The abridged factual matrix on which the constitutional validity of
the Ordinance (now Act) and the consequential orders and appointments
of the ECs have been questioned in the above petitions may be broadly
indicated at this stage as follows : F

The present CEC claims that after his appointment on 12.12.1990
he insisted on strict compliance with the model Code of Conduct by all
political parties and candidates for election and took stern action against
in fractions thereof regardless of the political party or candidate involved. G
The ruling party at the centre was irked as a few of the bye-elections of
the ruling party leaders/cabinet ministers were put off for the
Government's failure to deploy sufficient staff and police force for the
elections and the ruling party lost the election in Tripura on account of
strict action taken by the CEC against erring officials consequent postpone-
ment of elections. The ruling party made attempts to influence the CEC H
118 SUPREME COURT REPORTS [1995] SUPP. 2 S.C.R.

A hut could not do so as he did not allow the emissaries of the party to meet
him. The CEC also filed a writ petition in the Supreme Court for enforcing
the constitutional right of the Election Commission for staff and force. The
CEC peclined to postpone elections for four State assemblies despite
requests from the ruling party. The ruling party, including the Prime
Minister, got irritated with such unbending attitude of the CEC. The ruling
B party, therefore, with a view to freeze the powers of the CEC and to
prevent him from taking any action against violation of code of conduct
chose to amend the law and misused the power of the President under
Article 324(2) of the Constitution by issuing the notification dated 1st
October, 1993 fixing the number of ECs at two and simultaneously appoint-
c ing Mr. M.S. Gill & Mr. G.V.G. Krishnamurthy as the other two ECs.

The CEC not only imputes malafides for the issuance of the aforesaid
notifications & appointments but also alleges that the intention behind
issuing the Ordinance was to sideline the CEC and to erode his authority
D so that the ruling party at the centre could extract favourable orders by
using the services of the newly appointed ECs.

Sections 9 & 10 of the Ordinance (now Act) are challenged as ultra
vires the Constitution on the plea that they are inconsistent with the scheme
underlying Article 324 of the Constitution, in that, the said Article 324 did
E not give any power to the Parliament to frame rules for transaction of
business of the Election Commission. Section 10 is also challenged on the
ground that it is arbitrary and unworkable. So also the notification fixing
the number of other ECs at two is challenged as arbitrary and violative of
Article 14 of the Constitution.
F
The writ petitions are resisted by the respondents, viz.,. the Union of
India and the two other ECs. Mr. M.S. Gill & Mr. G.V.G. Krishnamurthy
as wholly misconceived. It is contended on behalf of the Union Govern-
ment that various advisory bodies had from time to time called for a
multi-member Election Commission. It denies the allegation that the
G decision to convert the Election Commission into a multi-member body
had any connection with the alleged discomfiture of the ruling party at the
centre
..... on account of the stiff attitude of the CEC. It is further stated that
\

the multi-member body would not have been able to function without a
supporting statute providing for dealing with different situations likely to
H arise in the course of transaction of business. The Ordinance was framed
~ T.N.SESHAN v. U.O.I. [AHMADI, J.] 119

keeping in view the observations made in this regard by this Court in the A
case of S.S. Dhanoa v. U.O.l. & Ors., (1991) 3 SCC 567. It is strongly denied
that the changes in the law were made malafide with a view to laming the

.
CBC into submission or to erode his authority by providing that, in the
event of difference of opinion, the majority view would prevail. It is
contended that the plain language of Article 324(2) envisages a multi-mem-
B
ber Commission and, therefore, any exercise undertaken to achieve that
objective would be consistent with the scheme of the said constitutional
provision and could, therefore, never be branded as malafide or ultravires
the Constitution. A provision to the effect that, in the event of a difference
of opinion between the three members of the Election Commission, the
majority view should prevail is consistent with democratic principles and c
can never be described as arbitrary or ultravires Article 14 of the Constitu-
tion. The Union of India, has, therefore, contended that the writ petitions
are wholly misconceived and deserve to be dismissed with costs.

The Preamble of our Constitution proclaims that we are a D
Democratic Republic. Democracy being the basic feature of the constitu-

- tional set up, there can be no two opinion that free and fair elections to
our legislative bodies alone would guarantee the growth of a healthy
democracy in the country. In order to ensure the purity of the election
process it was thought by our Constitution-makers that the responsibility
to hold free and fair elections in the country should be entrusted to an E
independent body which would be insulated from political and/or executive
interference. It is inherent in a democratic set up that the agency which is
entrusted the task of holding election to the legislatures should be fully
insulated so that it can function as an independent agency free from
external pressures from the party in power or executive of the day. This F
objective, is achieved by the setting up of an Election Commission, a
permanent body, under Article 324(1) of the Constitution. The superinten-
dence, direction and control of the entire election process in the country
has been vested under the said clause in a commission called the Election
Commission. Clause (2) of the said article then provides for the constitu-
tion of the Election Commission by providing that it shall consist of the G
CBC and such number of ECs, if any, as the President may from time to
~

time fix. It is thus obvious from the plain language of this clause that the
Election Commission is composed of the CBC and, when they have been
appointed, the ECs. The office of the CEC is envisaged to be a permanent
fixture but that cannot be said to the ECs as is made manifest from the use H
120 SUPREME COURT REPORTS [1995) SUPP. 2 S.C.R.

A of the words "if any". Dr. Ambedkar while explaining the purport of this
clause during the debate in the Constituent Assembly said :

"Sub-clause (2) says that there shall be a Chief Election. Commis- .;......-
sioner and such other Election Commissioners as the President
may, from time to time appoint. there were two alternatives before
B the Drafting Committee, namely, either to have a permanent, body
consisting of four or five members of the Election Commission who
would continue in office throughout without any break, or to
permit the President to have an ad hoc body appointed at the time
when there is an election on the anvil. The Committee has steered
c a middle course. What the drafting Committee proposed by sub-
clause (2) is to have permanently in office one man called the Chief
Election Commissioner, so that the skeleton machinery would
always be available."

It is crystal clear from the plain language of the said clause (2) that our
D Constitution-makers realised the need to set up an independent body or
commission which would be permanently in session with atleast one officer,
namely, the CEC, and left it to the President to further add to the
Commission such number of ECs as he may consider appropriate from
time to time. Clause (3) of the said article makes it clear that when Election
-
E Commission is a multi-member· body the CEC shall act as its Chairman.
What will be his role as a Chairman has not been specifically spell out by
the said article and we will deal with this question hereafter. Clause (4) of
the said article further provides for the appointment of RCs to assist the
Election Commission in the performance of its functions set out in clause
(1). This, in brief, is the Scheme of Article 324 insofar as the constitution
F of the Election Commission is concerned.

We may now briefly notice the position of each functionary ~f the
Election Commission. In the first place, clause (2) states that the appoint-
ment of the CEC and other ECs Shall, subject to any law made in that
G behalf by parliament, be made by the President. Thus the President shall
be the appointing authority. Clause (5) provides that subject to any law
made by Parliament, the conditions of service and the tenure of office of
the ECs and the RCs shall be such as may be determined by rule made by
the President. Of course the RCs do not form part of the Election Com-
mission but are appointed merely to help the Commission, that is to say,
H the CEC and the ECs, if any. As we have pointed out earlier the tenure,
T.N.SESHAN v. U.0.L [AHMADI, J.) 121

salaries, allowances and other perquisites of the CBC and ECs had been A
fixed under the Act as equivalent to a Judge of the Supreme Court and the
High Court, respectively. This has undergone a change after the Ordinance
which has so ameJided the Act as to place them on par. However, the
proviso to clause(4) of Article 324 says (i) the CBC shall not be removed
from his office except in like manner and on the like grounds as a Judge
of the Supreme Court and (ii) the conditions of service of the CBC shall B
not be varied to his disadvantage after his appointment. These two limita-
tions on the power of parliament are intended to protect the independence
of the CEC from political and/or executive interference. In the case of ECs
as well as RCs, the second proviso to clause (5) provides that they shall
not be removed from office except on the recommendation the CEC. It
may also be noticed that while under clause (4), before the appointment C
of the RCs, consultation with the Election Commission (not CEC) is
necessary, there is no such requirement in the case of appointments of ECs.
The provission that the ECs and the RCs once appointed cannot be
removed from office before the expiry of their tenure except on the
recommendation of the CEC ensures their independence. The scheme of D
Article 324 in this behalf is that, after insulting the CEC by the first proviso
to clause (5), the ECs and the RCs have been assured independence of
functioning by providing that they cannot be removed except on the recom-
mendation of the CBC. Of course, the recommendation for removal must
be based on intelligible, and cognate considerations which would have
relation to efficient functioning of the Election Commission. That is so E
because this privilege has been conferred on the CBC to ensure that the
ECs as well as the RCs are not atthe mercy of political or executive bosses
of the day. It is necessary to realise that this check on the executive's power
to remove is built into the second proviso to clause (5) to safeguard the
independence of not only these functionaries but the Election Commission
as a body. If, therefore, the power were to be exercisable by the CBC as F
per his whim and caprice, the CBC himself would become in instrument
of oppression and would destroy the independence of the ECs and the RCs
if they are required to function under the threat of the CBC recommending
their removal. It is, therefore, needless to emphasise that the CBC must
exercise this power only when there exist valid reasons which are conducive
to efficient functioning of the Election Commission. This, briefly stated, G
indicated the status of the various functionaries constituting the Election
Commission.

The concept of plurality is writ large on the face of Article 324, clause
(2) whereof clearly envisages a multi-member Election Commission com- H
122 SUPREME COURT REPORTS [1995) SUPP. 2 S.C.R.

A prising the CEC and one or more ECs. Visualising such a situation, clause
(3) provides that, in the case of a multi-member body the CEC will be its
Chairman. If a multi-member Election Commission was not contemplated
where was the need to provide in clause (3) for the CEC to act as its
Chairman? There is, therefore, no room for doubt that the Election Com-
mission could be a multi-member body. If article 324 does contemplate a
B multi-member body, the impugned notifications providing for the other two
ECs cannot be faulted solely on that ground. We may here quote, with
approval, the observations of a two-Judge bench of this Court in S.S.
Dhanoa v. Union of India and Others, [1991) 3 SCC 567, vide paragraph
26:
c
"There is no doubt that two heads are better than one, and
particularly when an institution like the Election Commission is
entrusted with vital functions, and is armed with exclusive uncon-
trolled powers to execute them, it is both necessary an desirable
that the powers are not exercised by one individual, however,
D all-wise he may be. It ill conforms the tenets of the democratic
rule. It is true that the independence of an institution depends
upon the persons who main it and not on their number. A single
individual may sometimes prove capable of withstanding all the
pulls and pressures, which many may not. However, when vast
E powers are exercised by an institution which is accountable to
none, it is politic to entrust its affairs to more hands than one. It
helps to assure judiciousness and want of arbitrariness. The fact,
however, remains that where more individuals than one, man an
institution, their roles have to be clearly defined, if the functioning
of the institution is not to come to a naught."
F
It must be realised that these observations were made, notwithstanding the
fact that the learned Judges were alive to and award of the circumstances
in which the President was required in that case to rescind the notifications
creating two posts of ECs and appointing the petitioner Dhanoa and
G another to them.

There can be no dispute, and indeed there never was, that the
Election Commission must be an independent body. It is also clear from
the scheme of Article 324 that the said body shall have the CEC as a
H permanent incumbent and under clause (2) such number of other ECs, if
T.N.SESHAN v. U.0.1. [AH.T\.iADI, J.] 123

any, as the President, may deem appropriate to appoint. The scheme of A
Article 324, therefore, is that there shall be a permanent body to be called
the Election Commission with a permanent incumbent to be called the
CEC. The Election Commission can therefore be a single member body or
.. ---4. a multi- member body if the President considers it necessary to appoint
one or more ECs. Upto this point there is no difficulty. The argument that B
a multi-member Election Commission would be unworkable and should
not, therefore, be appointed must be stated to be rejected. Our Constitu-
tion-makers have provided for a multi-member body. They saw the need
to provide for such a body. If the submission that a multi-member body
would be unworkable is accepted it would tantamount to destroying or
nullifying clauses (2) and (3) of Article 324 of the Constitution. Strong C
reliance was, however, placed on Dhanoa's case to buttress the argument.
The facts of that case were just reverse of the facts of the present case. In
that case the President by a notification issued in pursuance of clause (2)
of Article 324 fixed the number of ECs, besides the CEC, at two and few
days thereafter by a separate notification appointed the petitioner and one D
another as ECs. By yet another notification issued under clause (5) of
Article 324 the President made rules to regulate their tenure and .condi-
tions of service. After watching the functioning of the multi-member body
for about a couple of months, the President issued two notification5 res-
cinding with immediate effect the notification by which the two posts of
ECs were created and the notification by which the petitioner and one E
another were appointed thereto. The petitioner S.S. Dhanoa challenged the
notifications rescinding the earlier notifications firstly on the ground that
once appointed an EC continues in office for the full term determined by
rules made under clause (5) of Article 324 and, in any event, the petitioner
could not be removed except on the recommendation of the CEC. At the F
same time it was also contended that the notifications were issued malafide
under the advise of the CEC to get rid of the petitioner and his colleague
because the CEC was from the very beginning ill-disposed or opposed to
the creation of the posts of ECs. According to the petitioner, there were
differences of opinion between the CEC on the one hand and the ECs on
the other and since the CEC desired that he should have the sole power G
to decide he did not like the association of the ECs.

The principal question which the Division Bench of this Court was
called upon to decide was whether the President was justified in rescinding
· the earlier notifications creating two posts of ECs and the subsequent H
124 SUPREME COURT REPORTS [1995) SUPP. 2 S.C.R.

A appointments of the petitioner and his colleague as Bes. The Court found
as a fact that there was no imminent need to create two posts of ECs and
fill them up by appointing the petitioner and his colleague. The additional
work likely to be generated on account of the lowering of the voting age
from' 21 years to 18 years could have been handled by increasing the staff
rather than appoint two ECs. So the Court took the view that from the
B inception the Government had committed an error in creating two posts
of ECs and filling them up. We do not at the present desire to comment
on the question whether this aspect of the matter was justiciable. It was
further found as a fact that the petitioner's and his colleagues attitude was
not cooperative and had it not been for the sagacity and restraint shown
C by the CBC, the work of the Commission would have come to a standstill
and the commission would have been rendered inactive. It is for this reason
that the court observed that no one need shed tears on the posts being
abolished (vide paragraphs 20, 23, 24 and 25 of the judgment). The Court,
therefore, upheld the Presidential notifications rescinding the creation of
D the two posts of ECs and the appointments of the petitioner and his
colleague thereon. Notwithstanding this bitter experiences, the Division
Bench made the observations in paragraph 26 extracted hereinbefore, with
which we are in respectful agreement. We cannot overlook the fact that
when the Constitution-makers provided for a multi-member Election Com- >-
mission they were not oblivious of the fact that there may be not be
E agreement on all points, but they must have expected such high ranking
functionaries to resolve their differences in a dignified manner. It is the
constitutional duty of all those who are required to carry ciut certain
constitutional functions to ensure the smooth functioning of the machinery
without the clash of egos. This should have put an end to the matter, but
F the Division Bench proceeded to make certain observations touching on
the status of the CBC vis-a-vis the ECs, the procedure to be followed by a
multi-member body in decision making in the absence of rules in that
behalf, etc., on which considerable reliance was placed by counsel for the
petitioners.

G We have already highlighted the salient features regarding the com-
position of the Election Commission. We have pointed out the provisions
regarding the tenure, conditions of servi~, salary, allowances, removability,
etc; of the CBC, the ECs and the RCs. The CBC and the ECs alone
constitute the Election Commission whereas the RCs are appointed merely
H to assist the Commission. The appointment of the RCs can be made after
T.N.SESHAN v. U.0.1. (AHMADI, J.] 125

consulting the Election Commission since they are supposed to assist that A
body in the performance of the functions assigned to it by clause (1) of
Article 324. If that be so there can be no doubt that they would rank next
to the CEC and the ECs. That brings us to the question regarding the status
of the CEC vis-a-vis the ECs. It was contended by the learned counsel for
the petitioners that the CEC enjoyed a status superior to the ECs for the B
obvious reason that (i) the CEC has been granted conditions of service on
par with a judge of the Supreme Court which was not the case with the
conditions of service of ECs before the Ordinance, (ii) the CEC has been
given the same protection against removal from service as available to a
Judge of the Supreme Court whereas the ECs can be removed on the
CEC's recommendation, (iii) the CEC's conditions of service cannot be C
offered or varied to his disadvantage after his appointment, (iv) the CEC
has been conferred the privilege to act as Chairman of the multi-member
commission and (v) the CEC alone is the permanent incumbent whereas
the ECs could be removed, as happened in the case of Dhanoa. Strong
reliance was placed on the observations in paragraphs 10 and 11 of D
Dhanoa's case in support of the argument that the CEC enjoys a higher
status vis-a-vis the ECs while functioning as the Chairman of the Election
Commission. The observation relied upon read thus :

"10. However, in the matter of the conditions of service and tenure
of office of the Election Commissioners, a distinction is made E
between the Chief Election Commissioner on the one hand and
Election Commissioners and Regional Comrilissioners on the
other. Whereas the conditions of service and tenure of office of
all are to be such as the President may, by rule determine, a
protection· is given to the Chief Election Commissioner in that his F
conditions of service shall not be varied to his disadvantage after
his appointment, and he shall not be removed from his office
except in like manner and on the like grounds 'as a Judge of the
Supreme Court. These protections are not available either to the
Election Commissioners or to the Regional Commissioners. Their G
conditions of service can be varied even to their disadvantage after
their appointment and they can be removed on the recommenda-
tion of the Chief Election Commissioner, although not otherwise.
It would thus appear that in these two respects not only the
Election Commissioner are not on par with the Chief· Election
Commissioner, but they are placed on par with _the Regional H
126 SUPREME COURT REPORTS [1995) SUPP. 2 S.C.R.

A Commissioners although the former constitute the Commission
and the latter do not and are only appointed to assist the Com-
m1ss10n.

11. It is necessary to bear these features in mind because although
clause (2) of the article states that the Commission will consist of
,.-
B both the Chief Election Commissioner and the Election Commis-
sioners if and when appointed, it does not appear that the framers
of the Constitution desired to give the same status to the Election "C
Commissioners as that of the Chief Election Commissioner. The
Chief Election Commissioner does not, therefore, appear to be
c primus inter partes, i.e., first among the equals, but is intended to
be placed in a distinctly higher position. The conditions that the
President may increase or decrease the number of Election Com-
missioners according to the· needs of the time, that their service
conditions may be varied to their disadvantage and that they may
be removed on the re.commendation of the Chief Election Com-
D
missioner militate against their being of the same status as that of
the Chief Election Commissioner ........"

While it is true that under the scheme of Article 324 the conditions
of service and tenure of office of all the functionaries of the Election
E Commission have to be determined by the President unless. determined by
law made by Parliament, it is only in the case of the CBC that the first
proviso to clause (5) lays down that they cannot be varied to the disad-
vantage of the CBC after his appointment. Such a protection is not ex-
tended to the ECs. But it must be remembered that by virtue of the
F Ordinance the CEC and the ECS are placed on par in the matter of salary,
etc. Does the absence of such provision for ECs make the CBC superior
to the ECs? The second ground relates to removability. In the case of the
CBC he can be removed from office in like manner and on the like ground
as a judge of the Supreme Court whereas the ECS can be removed on the ,,
recommendation of the CEC. That, however, is not an indicia for confer-
G ring a higher status on the CBC. To so hold is to overlook the scheme of
Article 324 of the Constitution. It must be remembered that the CBC is
intended to be a permanent incumbent and, therefore, in order to preserve
and safeguard his independence, he had to be treated differently. That is
because there cannot be an Election Commission without a CBC. That is
H not the case with other ECs. They are not intended to be permanent
T.N.SESHAN v. U.0.1. [AHMADI, J.] 127

incumbents. Clause (2) of Article 324 itself suggests that the number of A
ECS can very from time· to time. In the very nature of things, therefore,
they could not be conferred the type of irremovability that is bestowed on
the CEC. If that were to be done, the entire scheme of Article 324 would
have to undergo a change. In the scheme of things, therefore, the power
to remove in certain cases bad to be retained. Having insulated the CEC B-
from external political or executive pressures, confidence was reposed in
this independent functionary to safeguard the independence of his ECs and
even RCs by enjoining that they cannot be removed except on the recom-
mendation of the CEC. This is evident from the following statement found
in the speech of Shri K.M. Munshi in the Constituent Assembly when he
supported the amended draft submitted by Dr. Ambedkar: C

"We cannot have an Election Commission sitting all the time during
those five years doing nothing. The Chief Election Commissioner
will continue to be a whole~time Officer performing the duties of
his office and looking after the work from day to day but when D
major elections take place in the country, either Provincial or
Central, the Commission must be enlarged to cope with the work.
More members therefore have to be added to the Commission.
They are no doubt to be appointed by the President. Therefore,
to that extent their independence is ensured. So there is no reason
to believe that these temporary Election Commissioners will not E
have the necessary measure of independence."

Since the other ECs were not intended to be permanent appointees they
could not be granted the irremovability protection of the CEC, as per-
manent incumbent, and,therefore, they were placed under the protective F
umbrella of an independent CEC. This aspect of the matter escaped the
attention of the learned Judges who decided Dhanoa's case. We are also
of the view that the comparison with the functioning of the executive under
Articles 74 and 163 of the Constitution in paragraph 17 of the judgment
with respect, cannot be said to be apposite.
G
Under clause (3) of Article 324, in the case of a multi-member
Election Commission, the CEC 'shall act' as the Chairman of the Commis-
...-- '
sion. As we have pointed out earlier, Article 324 envisages a permanent
body to be headed _by a permanent incumbent, namely , the CEC. The fact
that the CEC is a permanent incumbent cannot confer on him a higher H
128 SUPREME COURT REPORTS [1995] SUPP. 2 S.C.R.

A status than the ECs for the simple reason that the latter are not intended
to be permanent appointees. Since the Election Commission would have a
staff of its own dealing with matters concerning the superintendence,
direction and control of the preparation of electoral rolls, etc, that staff
would have to function under the direction and guidance of the CEC and
hence it was in the fitness of things for the Constitution-makers to provide
B that whether the Election Commission is a multi-member body, the CEC
shall act as its Chairman. That would also ensure continuity and smooth
functioning of the Commission.

That brings us to the question: what role has the CEC to play as the
c Chairman of a multi-member Election Commission? Article 324 does not
throw any light on this point. The debates of the Constituent Assembly also
do not help. Although there had been a multi-member Commission in the
past no convention or procedural arrangement had been worked out then,
It is this situation which compelled the Division Bench of this Court in
Dhanoa's case to inter alia observe that in the absence of rules to the
D
contrary, the members of a multi-member body are not and need not
always be on par with each other in the matter of their rights, authority
and powers. Proceeding further in paragraph 18 it was said :

"18. It is further an acknowledged rule of transacting business in
E a multi-member body that when there is no express provision to
the contrary, the business has to be carried on unanimously. The
rule to the contrary such as the decision by majority has to be laid
down specifically by spelling out the kind of majority - whether
simple, special, of all the members or of the members present and
F voting etc. In a case such as that of the Election Commission which
is not merely an advisory body but an executive one, it is difficult
to carry on its affairs by insisting on unanimous decisions in all
matters. Hence, a realistic approach demands that either the
procedure for transacting business is spell out by a statute or a
rule either prior to or simultaneously with the appointment of the
G Election Commissioners or that no appointment of Election Com-
missioners is made in the absence of such procedure. In the present

H
case, admittedly no such procedure has been laid down.

We must hasten to add that the accuracy of the statement that in a
multi-member body the rule of unanimity would prevail in the absence of
--
T.N.SESHAN v. U.O.I. [AHMADI, J.] 129

express provision to the contrary was doubled by counsel for the respon- A
dents-ECs. At the same time, counsel for the Union of India and the
contesting ECs contended that the Ordinance was promulgated by the
President strictly in conformity with the view expressed in Dhanoa's case.

From the discussion upto this point what emerges is that by clause B

-
(1) of Article 324, the Constitution-makers entrusted the task of conducting
all elections in the country to a Commission referred to as the Election
Commission and not to an individual. It may be that if it is a single-member
body the decisions may have to be taken by the CEC but still they will be
the decisions of the Election Commission. They will go down as precedents
of the Election Commission and not the individual. It would be wrong :o c
project the individual and eclipse the Election Commission. Nobody can
be above the institution which he is supposed to serve. He is merely the
creature of the institution, he can exist only if the institution exists. To
project the individual as mightier than· the institution would be a grave
mistake. Therefore, even if the Election Commission is a single-member D
body, the CEC is merely a functionary of that body; to put it differently,
/.
tbe alter ego of the Commission and no more. And if it is a multi-member
body the CEC is obliged to act as its Chairman. 'Chairman' according to
the Concise Oxford Dictionary means a person chosen to preside over
meetings, e.g., one who presides over the meetings of the Board of Direc-
tors. In Black's Law Dictionmy, 6th Edition, page 230, the same expression E
is defined as a name given to a Presiding Officer of an assembly, public
meeting, convention, deliberative or legislative body, board of directors,
committee, etc. Similar meanings have been attributed to that expression
in Ballentine's Law Dictionary, 3rd Edition, pages 189-190, Webster's New
Twentieth Century Dictionary, Unabridged, 2nd Edition, page 29, and F
Aiyer's Judicial Dictionary, 11th Edition, page 238. The Function of the
Chairman would, therefore, be to preside over meetings, preserve order,
conduct the business of the day, ensure that precise decisions are taken
and correctly recorded and do all that is necessary for smooth transaction
or business. The nature and duties of this office may vary depending on
the nature of business to be transacted but by and large these would be G
the functions of a Chairman. He must so conduct himself at the meetings
chaired by him that he is able to win the confidence of his colleagues on
. the Commission and carry them with him. This a Chairman may find
difficult to achieve if he thinks that others who are members of the
Commission are his subordinates. The functions of the Election Commis- H
130 SUPREME COURT REPORTS [1995] SUPP. 2 S.C.R.

A sion are essentially administrative but there are certain adjudicative and
legislative functions as well. The Election Commission has to lay down
certain policies, decide on certain administrative matters of importance as
distinguished from routine matters of administration and also adjudicate
certain disputes, e.g., disputes relating to allotment of symbols. Therefore,
besides administrative functions it may be called upon to perform quasi-
B judicial duties and undertake subordinate legislation making functions as
well. See M.S. Gill v. Chief Election Commissioner, (1978] 2 SCR 272. We
need say no more on this aspect of the matter.

There can be no doubt that the Election Commission discharges a
C public function. As pointed out earlier, the scheme of Article 324 clearly
envisages a multi-members body comprising the CEC and the ECs. The
RCs may be appointed to assist the Commission. If that be so the ECs
cannot be put on par with the RCs. As already pointed out, ECs form part
of the Election Commission unlike· the RCs. Their role is, therefore, higher
D than that of RCs. If they form part of the Commission it stands to reason
to hold that they must have a say in decision-making. If the CEC is
considered to be a superior in the sense that this word is final, he would
render the ECs non-functional or ornamental. Such an intention is difficult
to call out from Article 324 nor can we attribute it to the Constitution-
makers. We must reject the argument that the ECs' function is only to
E tender advise to the CEC.

We have pointed out the distinguishing features from Article 324
between the position of the CEC and the ECs. It is essentially on account
of their tenure in the Election Commission that certain differences exist.
F We have explained why in the case of ECs the removability clause had to
be different. The variation in the salary, etc. cannot be a determinative
factor otherwise that would oscillate having regard to the fact that the
executive or the legislature has to fix the conditions of service under clause
(5) of Article 324. The only distinguishing feature that survives for con-
sideration is that in the case of the CEC his conditions of service cannot
G be varied to his disadvantage after his appointment whereas there is no
such safeguard in the case of ECs. That is presumably because the posts
are temporary in character. But even if it is not so, that feature alone
cannot lead us to the conclusion that the final word in all matters lies with
the CEC. Such a view would render the position of the ECs to that a mere
H advisers which does not emerge from the scheme of Article 324.
T.N.SESHAN v. U.0.1. [AHMADI, J.] 131

As pointed out earlier, neither article 324 nor any other provision in A
the Constitution expressly states how a multi-member Election Commission
will transact its business nor has any convention developed in this behalf.
That is why in Dhanoa's case this Court thought the gap could be filled by
an appropriate statutory provision. Taking a clue from the observation in
that connection in the said decision, the President promulgated the Or- B
dinance whereby a new chapter comprising sections 9 and 10 was added
to the Act indicating how the Election Commission will transact its busi-
ness. Section 9 merely states that the business of the Commission shall be
transacted in accordance with the provisions of the Act. Section 10 has
three sub-sections. Sub-section (1) says that the Election Commission may,
by unanimous decision, regulate the procedure for transaction of its busi- c
ness and for allocation of its business among the CEC and the ECs. It will
thus be seen that the legislature has left it to the Election Commission to
finalise both the matters by a unanimous decision. Sub-section (2) says that
all other business, save provided in sub-section (1), shall also be transacted
unanimously, as far as is possible. It is only when the CEC and the ECs D
cannot reach a unanimous decision in regard to its business that the
decision has to be by majority. It must be realised that the Constitu-
tion-makers preferred to remain silent as to the manner in which the
Election Commission will transact its business, presumably because they
thought it unnecessary and perhaps even improper to provide for the same E
having regard to the level of personnel it had in mind to man the Commis-
sion. They must have depended on the sagacity and wi~dom of the CEC
and his colleagues. The bitter experience of the past, to which a reference
is .made in Dhanoa's case, made legislative interference necessary once it
was also realised that a multi-member body was necessary. It has yet
manifested the hope in sub-sections (1) and (2) that the Commission will
F
be able to take decisions with one voice. But just in case that hope is belied
the rule of majority must come into play. That is the purport of section 10
of the Act. The submission that the said two sections are inconsistent with
the scheme of Article 324 inasmuch as they virtually destroy the two
safeguards, namely, (i) the irremovability of the CEC and (ii) prohibition G
against variation in service conditions to his disadvantage after this ap-
pointment, does not cut ice. In the first place, the submission proceeds on
the basis that the other two ECs will join hands to render the CEC
non-functional, a premise which is not warranted. It betrays the CEC's lack
of confidence in himself to carry his colleagues with him. In every multi- H
132 SUPREME COURT REPORTS [1995) SUPP. 2 S.C.R.

A member commission it is the quality of leadership of the person heading
the body that matters. Secondly, the argument necessarily implies that the
CEC alone should ·have the power to take decisions which, as pointed out
earlier, cannot ·be accepted because that renders the ECs' existence
ornamental. Besides, there is not valid nexus between the two safeguards
and Section 9 and 10; in fact the submission is a repetition of the argument
B that a multi-member commission cannot function, that it would be wholly
unworkable an<l that the Constitution-makers had erred in providing for it.
Tersely put, the argument boils down to this; erase the idea of a multi-
member Election Commission from your minds or else given exclusive
decision making power to the CEC. We are afraid such an attitude is not
c conclusive to democratic principles. Foot Note 6 at page 657 of Halsbury's
Laws of England, 4th Edition (Re-issue), Vol. 7(1) posits:

"The principle has long been established that the will of a Cor-
poration or body can only be express~d by the whole or a majority
of its principles, and the act of a majority is regarded as the act
D of the whole. (See Shakelton on the Law and Practice of Meetings,
Eight Edition, Co~pilation of AG, page 116)"

The same principle was reiterated in Grindley v. Barker, 126 English
Reporter 875 at 879 & 882. We do not consider it necessary to go through
E various decisions on this point.

The argument that the impugned proVisions constitute a fraud. on the
Constitution inasmuch as they are designed and calculated to defeat the
very purpose of having an Election Commission is begging the question.
While in a democracy every right thinking citizen should be concerned
F about the purity of the election process - this Court is no less concerned
about the same as would be evident from a series of decisions - it is difficult
to share the inherent suggestion that the ECs would not be as concerned
about it. And to say that the CEC would have to suffer the humiliation of
being overridden by two civil servants is to ignore the fact that the present
CEC was himself a civil servant before his appointment as CEC.
G
The Election Commission is not the only body which is a multi-
member body. The Constitution also provides for other public institutions
to be multi-member bodies: For example, the Public Service Commission.
Article 315 provides for the setting up of a Public Service Commission for
H the Union and every state and Article 316 contemplates a multi-member
T.N.SESHAN v. U.O.I. [AHMADl,J.] 133

body with a Chairman. Article 338 provides for a multi-member National A
Commission for SC/ST comprising a Chairman, Vice-Chairman and other
members. So also there were provisions for the setting up of certain other
multi-member Commissions or Parliamentary Committees under the Con-
stitution. These also function by the rule of majority and so we find it
difficult to accept the broad contention that a multi-member Commission
B
is unworkable. It all depends on the attitude of the Chairman and its
members. If they work in co-operation, appreciate and respect each other's
point of view, there would be no difficulty, but if they decide from the
outset to put in opposite directions, they would by their conduct make the
Commission unworkable and thus fail the system.
c
That takes us to the question of ma/a fides. It is in two parts. The
first part relates to events which preceded the Ordinance and the second
part to post-Ordinance and notification events. On the first part the CEC
contends that since, after his appointment, he had taken various steps with
a view to ensuring free and fair elections and was constrained to postpone D
certain elections which were to decide the fate of certain leaders belong to
the ruling party at the Centre i.e., the National Congress (I), he had caused
considerable discomfiture to them. His insistence on strict observance of
the model Code of Conduct has also disturbed the calculations of the ruling
party. According to him, he had postponed the elections in Kalka Assembly
constituency, Haryana, because the Chief Minister of Haryana, belonging E
to the ruling party at the Centre, had flouted the guidelines. So also he had
postponed the elections, in the State of Tripura which ultimately led to the
dismissal of the Government headed by the Chief Minister belonging to
the ruling party at the Centre. The postponement of the bye-elections
involving Shri Sharad Pawar and Shri Pranab Mukherjee also upset the F
calculations of the said party, He had also postponed the election in Anipet
Assembly constituency, Tamil nadu, as the Chief Minister of the State had
flouted the model Code of Conduct by announcing certain projects on the
eve of the elections. Shri Santosh Mohan Deb, Union Minister, belonging
to the ruling party, was also upset because the CEC took disciplinary action G
against officials who were found present at his election meetings. The
ruling party was also unhappy with his decision to announce general
election for the State Assemblies for Madhya Pradesh, Uttar Pradesh,
Rajasthan, Himachal pradesh and the National Capital Territory of Delhi
as the party was not ready for the same. According to the CEC he had also
spurned the request made thr(\Ugh the Lieutenant Governor of Delhi by H
134 SUPREME COURT REPORTS [1995) SUPP. 2 S.C.R.

A the said party for postponement of the Delhi elections. According to him,
emissaries were sent by the said party at the Centre to him but he did not
oblige and he ev~n took serious exception regarding the conduct of the
Government of Uttar Pradesh, Shri Moti Lal Vohra, for violating the model
Code of Conduct. Since the ruling party at the centre failed in all its
attempts to prevail upon to him, it decided to convert the Election Com-
B mission into a multi-member body and, after having the Ordinance issued
by the President, the impugned notifications appointing the two ECs were
issued. The extraordinary haste with which all this were done while the
CEC was at Pune and the urgency with which one of the appointees Shri
M.S. Gill was called to Delhi by a special aircraft betrayed the keenness
c on the part of the ruling party to install the two newly appointed ECs. The
CEC described in details the post-appointment events which took place at
the meeting of 11th October, 1993 in paragraphs 18 (c) to (t) and (g) of
the writ petition. According to him, by the issuance of the Ordinance and
the notifications the ruling party is trying to achieve indirectly that which
D it could not achieve directly. These, in brief, are the broad counts on the
basis whereof the contends that the ruling party at the Centre was keen to
dislodge him.

On behalf of the Union of India it is contended that the allegation
that the power to issue an Ordinance was misused for collateral purpose,
E namely, to impinge on the independence of the Election Commission, is
wholly misconceived since it is a known fact that the demand for a multi-
member Commission had been raised from time to time to different
political parties. The Joint Committee of both Houses of Parliament had
submitted a report in 1972 recommending a multi-member body and the
F Tarkunde Committee appointed on behalf of the Citizens for Democracy ·
also favoured a multi-member Election Commission in its report submitted
in August, 1974. Similarly, the Committee on electoral reforms appointed
by the Janata Dal tJo~ernment, in its report in May, 1990, favoured a three
member Election Commission. Various Members of Parliament belonging
G to different political shades had also raised a similar demand from time to
time: The Advocates General of various States in their meeting held on
26th S~ptember, 1993 at New Delhi had made a similar demand. It was,
therefore, not ~qrr~ct to contend that the decision to constitute a multi-
member Election Commission was abruptly taken with a mala fide inten-
tion, to curb the activities of the present CEC. The allegation that the
H decision was taken because the ruling party at the Centre was irked by the
T.N.SESHAN v. U.O.I. [AHMADI, J.] 135

attitude of the CEC in postponing elections on one ground or the other is A
denied. The issue regarding the constitution of a multi-member Election
Commission was a live issue and the same was dismissed at various fora
and even the Supreme Court in Dhanoa's case had indicated that vast
discretionary powers, with virtually no checks and balances, should not be
left in the hands of a single individual and it was desirable that more than B
one person should be associated with the exercise of such discretionary
powers. It was, therefore, in public interest that the Ordinance in question
was issued and two ECs were appointed to associate with the CEC. The
deponent contends that this was a bona fide exercise and it was unfortunate
that a high ranking official like the CEC had alleged that one of the ECs
had been appointed because he was a close friend of the Prime Minister, C
an allegation which was unfounded. It is therefore denied that the Or-
dinance and the subsequent notifications appointing the two ECs were
intended to sideline the CEC and erode his authority. The Government
bona fide followed the earlier reports and the observations made in
Dhanoa's case to which a reference has already been made. It is, therefore, D
contended that Sections 9 and 10 do not suffer from any vice as alleged by
the CEC. The two ECs have also filed their counter affidavits denying these
allegations. Shri G.V.G. Krishnamurthy, Respondent No. 3 in the CEC's
petition, has pointed out that the CEC had made unprecedented demands,
for example, (i) to be equated with Supreme Court Judges, and had
pressurised the Government that he be ranked along with Supreme Court E
Judges in the Warrant of Precedence, (ii) the powers of conte~pt of court
be conferred upon the Election Commission, (iii) the CEC had refused to
participate in meetings as ex- officio member of the delimitation Commis-
sion headed by Mr. Justice AM. Mir, Judge of the High Court Court of
J&K, on the ground that his position was higher, he having been equated F
with judges of the Supreme Court, (iv) the CEC be exempted from per-
sonal appearance in Court, (v) the Election Commission be exempted from
the purview of the UPSC so far as its staff was concerned, etc.

The learned Attorney General pointed out that no mala fides can be
.. attributed to the exercise of legislative power by the President of India G
under Article 123 of the Constitution. He further pointed out that having
regard to the express language of article 324(2) of the Constitution, it was
perfectly proper to expand the Election Commission by making ap-
propriate changes in the extent law. The question whether it is necessary
to appoint other ECs besides the CEC is for the Government to decide H
136 SUPREME COURT REPORTS (1995] SUPP. 2 S.C.R.

A and that is not a justiciable matter. The demand for a multi-member
Commission was being voiced for the last several years and merely because
it was decided to make an amendment in the statute through an Ordinance,
it is not permissible to infer that the decision was actuated by malice. It
was lastly contended that Article 324 nowhere stipulates that before ECs
are appointed, the CEC will be consulted. In the absence of an express
B provision in that behalf, it cannot be said that the failure to consult the
CEC before the appointments of the two ECs vitiates the appointment.

One of the interveners, the petitioner of SLP No. 16940 of 1993, has
filed written submissions through his counsel wherein, while supporting the
C action to constitute the multi-member Commission, he has criticised the
style of functioning of the CEC and has contended that his actions have,
far from advancing the cause of free and fair elections, resulted in
hardships to the people as well as the system. It has been pointed out that
several rash decisions were taken by the CEC on the off-chance that they
D would pass muster but when challenged in court he failed to support them
and agreed to withdraw his orders. It is, therefore, contended that the style
of functioning of the present CEC itself is sufficient reason to constitute a
multi-member Commission so that the check and balance mechanism that
the Constitution provides for different institutions may ensure proper
decision-making.
E
There is no doubt that when the Constitution was framed the Con-
stitution-makers considered it necessary to have a permanent body headed
by the CEC. Perhaps the volume of work and the complexity thereof could
be managed by a single-member body. At the same time it was realised
F that with the passage of time it may become necessary to have a multi
member body. That is why express provision was made in that behalf in
clause (2) of Article 324. It seems that for about two decades the need for
a multi-member body was not felt. But the issue was raised and considered
by the Joint Committee which submitted a report in 1972. Since no action
was taken on that report the Citizens for Democracy, a non-governmental
G organisation, appointed a committee headed by Shri Tarkunde, former
Judge of the Bombay High Court, which submitted its report in August
1974. Both these bodies favoured a multi-member Commission but no
action was taken and, after a lull, when the Janata Dal came to power, a
committee was appointed which submitted a report in May 1990. That
H committee also favoured a multi-member body. Prior to that, in 1989 a
T.N.SESHAN v. U.0.1. [AHMADI, J.] 137

multi-member Commission was constituted but we know its fate (see A
Dhanoa's case). But the issue was not given up and demands continued to
pour in from Members of Parliament of different hues. These have been
mentioned in the counter of the Union of India. It cannot, therefore, be
said that this idea was suddenly pulled out of a bag. Assuming the present
CEC had taken certain decisions not palable to be ruling party at the
B
Centre as alleged by him, it is not permissible to jump to the conclusion
that that was the cause for the Ordinance appointments of the ECs. If such
a nexus is to weigh, the CEC would continue to act against the ruling party
to keep the move for a multi-member Commission at bay. We find it
difficult to hold that the decision to constitute a multi-member Commission
was actuated by malice. Therefore, even though it is not permissible to C
plead malice, we have examined the contention and see no merit in it. It
is wrong to think that the two ECs were pliable persons who were being
appointed with the sole object of eroding the independence of the CEC.

We may incidentally mention that the decisions taken by the CEC D
from time to time postponing elections at the last moment, of which he has
made mention in his petition, have evoked mixed reactions. This we say
because the CEC uses them to lay the foundation for his contention that
the entire exercise was ma/a fide. Some of his other decisions were so
unsustainable that he could not support them when tested in court. His
public utterances at times were so abrasive that this court had to caution E
him to exercise restraint on more occasions than one. This gave the
impression that he was keen to project his own image. That he has very
often been in the newspapers and magazines and on television cannot be
denied. In this backdrop, if the Government thought that a multi-member
body was desirable, the Government certainly was not wrong and its action F
cannot be described as malafide. Subsequent events would suggest that the
Government was wholly justified in creating a multi-member Commission.
The CEC has been seen in a commercial on television and in newspaper
advertisements. The CEC has addressed the Press and is reported to have
said that he would utilise the balance of his tenure to form a political party G
to fight corruption and the like [Sunday Times, (Bombay) dated June 25,
1995 page 28]. Serious doubts may arise regarding his decisions if it is
suspected that he has political ambitions, in the absence of any provision,
such as, Article 319 of the Constitution. The CEC is, it would appear,
totally oblivious to sense of decorum and discretion that his high office
requires even if the cause is laudable. H
138 SUPREME COURT REPORTS [1995) SUPP. 2 S.C.R.

A That takes us to the question of legislative competence. The conten-
tion is that since Article 324 is silent, Parliament expected the Commission
itself to evolve its own procedure for transacting its business and since the
CEC was the repository of the power to be exercised by the Commission
falling within the scope of its activity, it did not see the need to engraft any
procedure for transacting its business. If the Election Commission at any
B time saw the need for it, it would itself evolve its procedure but Parliament
cannot do so and hence Sections 9 and 10 are unconstitutional. Except the
legislation specifically permitted by clauses (2) and (5) of Art. 324 and
Articles 327 and 328, Part XV of the Constitution does not conceive of a
law by Parliament on any other matter and hence the impugned legislation
c is unconstitutional.

Now it must be noticed at the outset that both clauses (2) and (5) of
Article 324 contemplate a statute for the appointment of ECs and for their
conditions of service. The impugned law provides for both these matters
D and provisions to that effect cannot be challenged as unconstitutional since
they are expressly permitted by the said clauses (2) and (5). Once the
provision for the constitution of a multi-member Commission is unassail-
able, provisions incidental thereto cannot be challenged. It was urged that
the legislation squarely fell within Entry 72 of List I of the Seventh
E Schedule. That entry refers to ''Elections to Parliament, to Legislatures of
States and to the Offices of President and Vice-President; the Election
Commission". If, as argued, the scope of this entry is relatabl~ and confined
to clauses (2) and (5) of Article 324 and Articles 327 and 328 only, it would
be mere tautology. If the contention that tlie CEC alone has decisive power
is not accepted and we have not accepted it, and even it is assumed that
F the normal rule is of unanimity, sub-sections (1) and (2) of Section 10
provide for unanimity. It is only if there is no unanimity that the rule of
majority comes into play under sub-section (3).Therefore, even if we were
to assume that the Commission alone was competent to lay down how it
would transact its business, it would be required to follow _the same pattern
G as is set out in Section 10. W~, therefore, see no merit is this contention
also.

We would here like to make it clear that we should not be under-
stood to approve of the ratio of Dhanoa's case in its entirety. We have
H expressly approved it where required.
T.N.SESHAN v. U.0.1. (AHMADI, J.J 139

One of the matters to which we must, advert is the question of the A
status of an individual whose conditions of service are akin to those of the
judges of the Supreme Court. This seems necessary in view of the reliance
placed by the CEC on this aspect to support his case. In the instant case
some of the service conditions of the CEC are akin to those of the Supreme
Court Judges, namely, (i) the provision that he can be removed from office B
in like manner and on like grounds as a Judge of the Supreme Court and
(ii) his conditions of services shall not be varied to his disadvantage after
appointment. So far as the first is concerned instead of repealing the
provisions of Article 124(4), this draftsman has incorporated the same by
reference. The second provision is similar to the proviso to Article 125(2).
But does that confer the status of a Supreme Court Judge on the CEC? It
c
appears from the D.O. No. 193/34/92 dated July 23, 1992 addressed to the
then Home Secretary, Shri Godbole, the CEC had suggested that the
position of the CEC in the Warrant of Precedence needed reconsideration.
This issue he seems to have raised in his letter to the Prime Minister in
December 1991. It becomes clear from Shri Godbole' reply dated July 25, D
1992, that the CEC desired that he be placed at No.9 in the Warrant of
Precedence at which position the Judges of the Supreme Court figured. It
appears from Shri Godbole's reply that the proposal was considered but it
was decided to maintain the CEC's position at No.11 along with the
Comptroller and Auditor General of India and the Attorney General of E
India. However, during the course of the hearing of these petitions it was
stated that the CEC and the Comptroller and Auditor General of India
were thereafter placed at No.9A. At our request the learned Attorney
General placed before us the revised Warrant of Precedence which did
reveal that the the CEC had claimed to position No. 9A along with the
Comptroller and Auditor General of India. Maintenance of the status of
F
Judges of the Supreme Court and the High Court is highly desirable in the
national interest. We mention this because of late we find that even
personnel belonging to other fora claim equation with High Court and
supreme Court Judges merely because certain jurisdictions earlier exer-
cised by those Courts are transferred to them not realising the distinction G
between constitutional and statutory functionaries. We would like to im-
press on the Government that it should not confer equivalence or interfere
with the Warrant of Precedence, if it is likely to affect the position of High
Court and Supreme Court Judges, however pressing the demand may be,
without first seeking the views of the Chief Justice of India. We may add H
140 SUPREME COURT REPORTS (1995) SUPP. 2 S.C.R.

A that Mr. G. Ramaswamy, learned counsel for the CEC, frankly conceded
that the CEC could not legitimately claim to be equated with Supreme
Court Judges. We do hope that the Government will take note of this and
do the needful.

We have deliberately avoided going into the unpleasant exchanges
B that took place in the chamber of the CEC 11th October, 1993, to which
reference has been made by the CEC in paragraph 18 ( c to f and g) of his
petition. These allegations have been denied by Shri Krishnamurthy and
Shri Gill does not support the CEC when he says he was abused. Although
these allegations and counter allegations found their way into the press, we
c do not think any useful purpose will be served by washing dirty linen in
public except showing both the CEC and Shri Krishnamurthy in poor light.
The CEC and the ECs are high level functionaries. They have several years
of experience as civil servants behind them. All of them have served in
responsible positions at different levels. It is a pity they did not try to work
D as a team. The efforts of Shri Gill to persuade the other two to forget the
past and to get going with the job fell on deaf ears. Unfortunately, suspicion
and distrust got the better of them. We hope they will forget and forgive
start on a clean state of mutual respect and confidence and get going with
the task entrusted to them in a sporting spirit always bearing in mind the
fact that the people of this great country are watching them with expecta-
E tion. For the sake of the people and the country we do hope they will
eschew their egos and work in a spirit of camaraderie.

In the result, we uphold the impugned Ordinance (now Act 4 of
1994) in its entirety. We also uphold the two impugned notifications dated
F 1st October, 1993. Hence, the writ petitions fail and are dismissed. The
interim order dated 15th November, 1993 will stand vacated. If, as is
reported, the incumbent CEC has proceeded on leave, leaving the office
in charge of Shri Bagga, Shri Bagga will forthwith hand over charge to Shri
Gill till the CEC resumes duty. The IAs will stand disposed of. In the facts
and circumstances of the case, we direct parties to bear their own costs. If
G the CEC has incurred the costs of his petition from the funds of the
Election Commission, the other two ECs will be entitled to the same from
the same source.

T.W. Petitions dismissed.