REPORTABLE
IN THE SUPREME COURT OF INDIA
CIVIL ORIGINAL JURISDICTION
WRIT PETITION (CIVIL) NO. 13 OF 2003
COMMON CAUSE ...PETITIONER (S)
VERSUS
UNION OF INDIA ...RESPONDENT (S)
WITH
W.P. (C) No. 197 of 2004
&
W.P. (C) No.302 of 2012
J U D G M E N T
RANJAN GOGOI, J.
1. Common Cause and Centre for Public Interest Litigation, two
registered bodies, have approached this Court under Article 32 of the
Constitution seeking an appropriate writ to restrain the Union of India and
all State Governments from using public funds on Government advertisements
which are primarily intended to project individual functionaries of the
Government or a political party. The writ petitioners have also prayed for
laying down of appropriate guidelines by this Court to regulate Government
action in the matter so as to prevent misuse/wastage of public funds in
connection with such advertisements.
2. In the above stated writ petitions the writ petitioners while
conceding the beneficial effect of government advertisements which convey
necessary information to the citizens with regard to various welfare and
progressive measures as also their rights and entitlements, however, had
contended that in the garb of communicating with the people, in many
instances, undue political advantage and mileage is sought to be achieved
by personifying individuals and crediting such individuals or political
leaders (who are either from a political party or government functionaries)
as being responsible for various government achievements and progressive
plans. According to the petitioners such practice becomes rampant on the
eve of the elections. Such advertisements not only result in gross wastage
of public funds but constitute misuse of governmental powers besides
derogating the fundamental rights of a large section of the citizens as
guaranteed by Article 14 and 21 of the Constitution of India.
3. The writ petitions, filed as public interest litigations, were
resisted by the Union of India primarily on the ground that the issues
sought to be raised pertain to governmental policies and executive
decisions in respect of which it may not be appropriate for this Court to
lay down binding guidelines under Article 142. The decision of this Court
in Manzoor Ali Khan & Anr. Vs. Union of India & Ors.[1] and a pronouncement
of the Delhi High Court in Umesh Mohan Sethi Vs. Union of India & Anr.[2]
have been relied upon by the Union in support of its above stated stand.
4. The issues arising in the writ petitions were considered by this
Court in an earlier round of exhaustive hearings. By order dated
23.04.2014, this Court, on consideration of the respective stands of the
parties and by relying on the principles laid down in the decisions
specifically referred to in the aforesaid order dated 23.04.2014, inter
alia, held that there is no dispute that “primary cause of government
advertisement is to use public funds to inform the public of their rights,
obligations, and entitlements as well as to explain Government policies,
programmes, services and initiatives.” It was further held that only such
government advertisements which do not fulfil the above requisites will
fall foul of the area of permissible advertisements. This Court
acknowledged the fact that the dividing line between permissible
advertisements that are a part of government messaging and advertisements
that are “politically motivated” may at times gets blurred. As the
materials laid before the Court by the parties were found to be inadequate
for the purpose of evolving what would be the best practices keeping in
view the prevailing scenario in other jurisdictions across the globe, this
Court felt the necessity of constituting a Committee consisting of (1)
Prof. (Dr.) N.R. Madhava Menon, former Director, National Judicial Academy,
Bhopal (2) Mr. T.K. Viswanathan, former Secretary General, Lok Sabha and
(3) Mr. Ranjit Kumar, Senior Advocate to go into the matter and submit a
report to the Court.
5. In terms of the order of this Court, the Committee was duly
constituted and after full deliberations in the matter, a report had been
submitted by the Committee suggesting a set of guidelines for approval of
this Court. It is the plea of the petitioner that the said guidelines
should be approved by this Court and directions be issued under Article 142
of the Constitution of India for enforcement of the said guidelines until
an appropriate legislation in this regard is brought into effect by the
Parliament.
6. The contents of the guidelines suggested by the court appointed
Committee may be usefully extracted hereinbelow:-
“GUIDELINES ON CONTENT REGULATION OF
GOVERNMENT ADVERTISING
These Guidelines shall be called the Government Advertisement (Content
Regulation) Guidelines 2014.
They shall come into force with effect from......
2. APPLICATION:
(1) These Guidelines shall apply to all Government advertisements other
than Classified Advertisements.
(2) These Guidelines shall apply to the content of all Government
Advertising till a suitable legislation is enacted by the Government to
prevent the misuse of public funds on advertisements to gain political
mileage as distinct from legitimate Government messaging.
(3) These Guidelines shall apply to all –
(a) institutions of Government;
(b) public sector undertakings;
(c) local bodies and other autonomous bodies/organizations established
under a Statute.
3. DEFINITIONS:
In these Guidelines unless the context otherwise requires:
“Classified Advertisements” include public notices, tenders, recruitment
notices, statutory notifications.
“DAVP Guidelines” means the existing guidelines of the Directorate of
Advertising and Visual Publicity of the Ministry of Information and
Broadcasting dealing with the eligibility and empanelment procedures and
rates of payment and such other matters;
“Government” means Central Government, State Governments/Union Territory
Administrations and also includes local bodies, public sector undertakings
and other autonomous bodies/organisations established under a Statute.
“Government advertising” means any message, conveyed and paid for by the
government for placement in media such as newspapers, television, radio,
internet, cinema and such other, media but does not include classified
advertisements; and includes both copy (written text/audio) and creatives
(visuals/video/multi media) put out in print, electronic, outdoor or
digital media.
OBJECTS:
The objects of these Guidelines are:-
to prevent arbitrary use of public funds for advertising by public
authorities to project particular personalities, parties or governments
without any attendant public interest.
neither to belittle the need nor to deny the authority of the Union and
State Governments and its agencies to disseminate information necessary for
public to know on the policies and programmes of Government but only to
exclude the possibility of any misuse of public funds on advertisement
campaigns in order to gain political mileage by the political
establishment;
to address the gap in the existing DAVP Guidelines which only deal with the
eligibility and empanelment of newspapers/journals or other media, their
rates of payment, and such like matters and not on how to regulate the
content of Government advertisements;
to ensure that “all government activities satisfy the test of
reasonableness and public interest, particularly while dealing with public
funds and property”;
to ensure that government messaging is well co-ordinate, effectively
managed in the best democratic traditions and is responsive to the diverse
information needs of the public.
5. GOVERNMENT ADVERTISEMENT TO INFORM CITIZENS
Subject to these Guidelines Government may place advertisements or purchase
advertising space or time in any medium to inform citizens about their
rights and responsibilities, about government policies, programmes,
services or initiatives, or about dangers or risks to public health, safety
or the environment.
6. THE FIVE PRINCIPLES OF CONTENT REGULATION:
While placing advertisements or purchasing advertising space in any
media, the Government shall be guided by the following principles, namely:-
Advertising Campaigns to be related to Government responsibilities:
While it is the duty of the Government to provide the public with timely,
accurate, clear, objective and complete information about its policies,
programmes, services and initiatives since the public has a right to such
information, the content of government advertisements should be relevant to
the governments’ constitutional and legal obligations as well as the
citizens’ rights and entitlements.
Advertisement materials should be presented in an objective, fair and
accessible manner and be designed to meet the objectives of the campaign:
The material shall be presented in a fair and objective manner and shall be
capable of fulfilling the intended objectives;
Government shall exercise due caution while deciding the content, layout,
size and design of the message including the target area and the creative
requirement of the intended communication in order to ensure that the
maximum reach and impact are achieved in the most cost effective manner;
Content of advertisement must enable the recipients of the information to
distinguish between facts and analysis and where information is presented
as a fact, it should be accurate and verifiable;
Pre-existing policies, products, services and initiatives should not be
presented as new unless there has been a substantial change or modification
of such policies, products or services;
Content of advertisement should provide information in a manner that
accommodates special needs of disadvantaged individuals or groups
identified as being within the target audience;
Multiple formats may be used to ensure equal access;
Every effort shall be made to pre-test the material in case of large scale
campaign with target audiences.
Advertisement materials should be objective and not directed at promoting
political interests of ruling party:
Display material must be presented in objective language and be free of
political argument or partisan standpoint:
Government advertising shall maintain political neutrality and avoid
glorification of political personalities and projecting a positive
impression of the party in power or a negative impression of parties
critical of the government.
Advertisement materials must not –
Mention the party in government by name;
directly attack the views or actions of others in opposition;
include party political symbol or logo or flag;
aim to influence public support for a political party, candidate for
election; or
refer to link to the websites of political parties or politicians.
Government advertisement materials should avoid photographs of political
leaders and if it is felt essential for effective Government messaging,
only the photographs of the President/Prime Minster or Governor/Chief
Minister should be used;
Government advertisements shall not be used at patronizing media houses or
aimed at receiving favourable reporting for the party or person in power
Advertisement Campaigns be justified and undertaken in an efficient and
cost-effective manner:
Since it is the responsibility of government to safeguard the trust and
confidence in the integrity and impartiality of public services and hence
it should be the policy of governments to use public funds in such a manner
as to obtain maximum value for taxpayers’ money;
Advertisement Campaigns must be justified and undertaken in an efficient
and cost-effective manner;
The Government shall –
decide and announce beforehand, a list of personalities on whose birth or
death anniversaries, advertisements could be released every year and
specify which Ministry/Department could release the same;
avoid the issue of multiple advertisements by different departments and
PSUs of the same Government in Commemorative Advertisements and shall issue
a single advertisement only;
(d) Though advertising by governments should remain regulated all the
time, it is particularly important to scrupulously follow these principles
before and during the elections. As far as possible, during the period
prior to elections, only those advertisements required by law (such as
public health and safety advisories or job and contract advertisements)
alone be released by governments;
(e) Advertisement campaigns should only be need based; and
(f) In case of large volume advertisement campaigns, post-campaign impact
assessment is necessary to be included in the planning process itself and
shall identify the indicators to measure success when the campaign has
ended.
(5) Government advertising must comply with legal requirements and
financial regulations and procedures:
Governments shall ensure that all Advertisements comply with:-
relevant laws regarding privacy, intellectual property rights, election
laws and consumer protection laws apart from laws in respect of
broadcasting and media; and
copyright laws and ownership rights associated with works subject to
copyright are fully respected.
COMPLIANCE AND ENFORCEMENT:
The Government shall appoint an Ombudsman who shall be an eminent expert
independent of the Government to receive complaints of violations of
Guidelines and to recommend action in accordance with the Guidelines.
Heads of government departments and agencies shall be responsible for
ensuring compliance with these Guidelines and shall follow a procedure of
certification of compliance before advertisements are released to the
media.
As part of the performance audit of the Ministry/Department/Agency –
there shall be separate audit of the compliance of Advertisement
Guidelines by the Ministry/Department/Agency concerned; and
The annual report of such ministry/department/agency shall publish the
findings of such audit and the money spent on advertising.
The regulatory bodies of print and electronic media will be within their
powers to impose sanctions against such media groups acting against these
Guidelines in seeking or obtaining government advertisements.
8. GENERAL:
(1) These Guidelines shall be in addition to and not in derogation of the
existing Guidelines which are in place under the existing Advertisement
Policy of Government.
(2) These Guidelines are equally applicable to State Governments and its
agencies. The State Governments shall undertake amendments to whatever
policies they have in this regard and observe the Guidelines strictly in
letter and spirit.
The Ombudsman may recommend suitable changes to the Guidelines to deal with
new circumstances and situations.
The Government shall take necessary steps to initiate necessary legislation
on the subject, given its importance for democracy, human rights and good
governance.”
*******
Whether the guidelines recommended should commend acceptance and if so
whether the same should be made operative and enforceable under Article 142
of the Constitution.
7. In the earlier order dated 23rd April, 2014, this Court, after
holding that reasonableness and fairness consistent with Article 14 of the
Constitution would be the ultimate test of all State activities proceeded
to hold that the deployment of public funds in any Government activity
which is not connected with a public purpose would justify judicial
intervention. We would like to say something more.
Part IV of the Constitution is as much a guiding light for the Judicial
organ of the State as the Executive and the Legislative arms, all three
being integral parts of the “State” within the meaning of Article 12 of the
Constitution.[3]-[4] A policy certainly cannot be axed for its alleged
failure to comply with any of the provisions of Part IV. Neither can the
Courts charter a course, merely on the strength of the provisions of the
said Part of the Constitution, if the effect thereof would be to lay down a
policy. However, in a situation where the field is open and uncovered by
any government policy, to guide and control everyday governmental action,
surely, in the exercise of jurisdiction under Article 142 of the
Constitution, parameters can be laid down by this Court consistent with the
objects enumerated by any of the provisions of Part IV. Such an exercise
would be naturally time bound i.e. till the Legislature or the Executive,
as the case may be, steps in to fulfill its constitutional role and
authority by framing an appropriate policy.
8. Article 38 and 39 of the Constitution enjoin upon the State a duty to
consistently endeavour to achieve social and economic justice to the
teeming millions of the country who even today live behind an artificially
drawn poverty line. What can be the surer way in the march forward than by
ensuring avoidance of unproductive expenditure of public funds. This is
how we view the present matter and feel the necessity of exercise of our
jurisdiction under Article 142 of the Constitution to proceed further.
9. It is neither possible nor feasible or even necessary to try and
encompass the myriad situations where government advertisements are issued.
Indeed, the situations and circumstances; events and occasions on which
government advertisements are issued are infinite. Nevertheless, an
attempt can be made to arrive at a broad categorization for the purpose of
an illustrative understanding.
Advertisements highlighting completion of a fixed period of the
Government’s Tenure
Governments at the Centre as well as in the States often bring out
advertisements on completion of a number of days, months and years of
governance. In such advertisements, not only the ‘achievements’ are
highlighted even the different tasks which are in contemplation are
enumerated. By way of example one of the points highlighted may be supply
of electricity to each and every village. Though the achievements of a
Government should not be a matter of publicity and really ought to be a
matter of perception to be felt by the citizens on the results achieved,
such advertisements do have the effect of keeping the citizens informed of
the government functioning and therefore would be permissible.
Advertisements announcing projects:
On an everyday basis both the Government at the Centre as well as in
different States issue advertisements announcing events like laying of the
foundation of different development projects or the inauguration of
projects completed. In many of such advertisements the results obtained in
the particular field covered by the advertisement and the plan/targets for
the future are highlighted. Though such advertisements may look like a
report card of the Government there is an element of informative content in
such advertisements inasmuch as information is conveyed to the citizens as
regards government programmes, policies and achievements.
Advertisements issued on the occasion of birth/death anniversaries and
such other events:
Government advertisements are issued in the memory of great personalities
who occupy a significant place in our history, such as, the father of the
Nation, Mahatma Gandhi. While such persons must certainly be remembered,
what, however, would not be justified is several similar, if not identical,
advertisements issued by different Departments on the same occasion as is
happening today. One single advertisement issued by a Central Agency
should be enough to commemorate the anniversaries of the few acknowledged
and undisputed public figures whose contribution to the National Cause
cannot raise any dispute or debate.
Advertisement issued on certain other occasions, for instance, to mark the
centenary year of the Patna High Court does not serve any purpose and must
be avoided. Institutions need not be glorified. They must earn glory by
contribution and work.
Advertisements announcing policies and benefits for public:
All advertisements that fall within this category would be in public
interest. Such advertisements, as for example in respect of the National
Savings Schemes informing the public about benefits under the Scheme, are
purely informational and make people aware of their rights and
entitlements. Similarly, advertisements issued to generate public
awareness would also be justified on the touchstone of public interest. By
way of illustration, an advertisement issued by the Ministry of Health and
Family Welfare informing the public of preventable disease, safeguards to
be taken, vaccination programmes for the children, etc. would be highly
informative and, therefore, justified.
10. A connected facet of the matter which cannot be ignored is the power
of the Government to give/award advertisements to selected media houses and
the concomitant issue of freedom of press. Award of advertisements,
naturally, brings financial benefit to the particular media house/newspaper
group. Patronization of any particular media house(s) must be avoided and
award of advertisements must be on an equal basis to all newspapers who
may, however, be categorized depending upon their circulation. The
D.A.V.P. guidelines do not deal with the said aspect of the matter and
hence the necessity of incorporating the same in the present directions to
ensure the independence, impartiality and the neutrality of the fourth
estate which is vital to the growth and sustenance of democracy will have
to be weighed and considered by us.
11. An analysis of the Draft Guidelines as prepared by the Committee set
up by this Court in the case may now be made. The applicability of these
Guidelines is to all Government advertisements other than classifieds and
in all mediums of communication, thereby including internet advertising.
The objective of these Guidelines emphasize the Government’s responsibility
to disseminate information necessary for the public to know about the
policies and programmes of Government. It principally spells out five
principles to regulate the contents of advertisements, namely,
i) advertising campaigns are to be related to government
responsibilities,
ii) materials should be presented in an objective, fair and accessible
manner and designed to meet objectives of the campaign,
iii) not directed at promoting political interests of a Party,
iv) campaigns must be justified and undertaken in an efficient and cost-
effective manner and
v) advertisements must comply with legal requirements and financial
regulations and procedures.
The five broad Content Regulations contained in the draft guidelines framed
by the Committee are similar to the provisions found in the Australian
guidelines. However, under each broad head specific regulatory parameters
have been indicated which seem to embody what would be good practices in
the Indian context.
12. While under the first head the requirement of conformity of
Government advertisements with dissemination of information relating to
Government’s constitutional and legal obligations and the corresponding
rights and entitlements of citizens is being stressed upon, under the
second head objective presentation of the materials contained in an
advertisement bearing in mind the target audience has been emphasized.
Under the third head, the Guidelines state that advertisement materials
must not: (a) mention the party in government by its name, (b) attack the
views or actions of other parties in opposition, (c) include any party
symbol or logo, (d) aim to influence public support for a political party
or a candidate for election or (e) refer or link to the websites of
political parties or politicians. It is also stated in the Guidelines that
photographs of leaders should be avoided and only the photographs of the
President/ Prime Minister or Governor/ Chief Minister shall be used for
effective government messaging. The fourth head deals with cost
effectiveness of an advertisement campaign and measures to cut down
avoidable expenses. A somewhat restricted range of advertising activity on
the eve of the elections is also recommended. Appointment of an Ombudsman
to hear complaints of violation of the norms and to suggest amendments
thereto from time to time beside special performance audit by the concerned
Ministries is also recommended.
13. The Union Government and the State of Bihar have filed their
responses to the guidelines suggested by the Committee. The State of Bihar
suggests that some of the recommendations of the Committee, details of
which need not be noticed, are somewhat vague and require a more precise
definition or meaning. The only aspect of the suggestions where the State
has responded emphatically is with regard to the recommendation to confine
the publication of photographs of the President and the Prime Minister of
the country and the Governor and the Chief Minister of the State.
According to the State of Bihar such a restriction should not be imposed.
14. The Union in its response to the guidelines of the Committee has been
more categorical in suggesting certain changes as well as deletion of some
of the recommendations. It will, therefore, be necessary to specifically
notice the said objections raised by the Union.
|Content of the Recommendations | |Response of the Union |
|(1) Object of Guidelines |
|(a) To prevent arbitrary use of | |The meaning of the word |
|public funds for advertising by | |“arbitrary” according to the |
|public authorities. | |Union needs to be more |
| | |specifically defined. |
|(b) To exclude the possibility of | |According to the Union the |
|any misuse of public funds on | |expression “political mileage” |
|advertisement campaign in order to| |is inappropriate and should be |
|gain political mileage by the | |deleted. |
|political establishments. | | |
|(2) 5 Principles of Content Regulation |
|(a) Clause (vii) under the 2nd | |According to the Union this |
|point of the 5 principles | |should be done only when the |
|recommended by the Committee – | |same is feasible and whenever |
|Every effort should be made to | |public interest so demands. |
|pre-test the material in case of | | |
|large scale campaign with target | | |
|audiences. | | |
|(b) Clause (c)(i) under the 4th | |According to the Union the words|
|point of the 5 principles of | |“decide and announce beforehand”|
|Content Regulation states that | |may be deleted as the same is |
|“The Government shall decide and | |not feasible since issuance of |
|announce beforehand, a list of | |advertisement depends on a host |
|personalities on whose birth or | |of factors like availability of |
|death anniversaries, | |funds, last minute changes and |
|advertisements could be released | |the priorities of the |
|every year and specify which | |government. |
|Ministry/Department could release | | |
|the same. | | |
|(c) Clause (d) of the 4th point of| |According to the Union |
|the 5 principles of Content | |advertisement that serve public |
|Regulation states that “as far as | |interest may be issued at any |
|possible, during the period prior | |point of time. |
|to elections, only those | | |
|advertisements required by law | | |
|(such as public health and safety | | |
|advisories or job and contract | | |
|advertisements) alone be released | | |
|by the governments. | | |
| |
|(3) Ombudsman |
|The suggestion of the Committee | |The Union objects to the same |
|with regard to appointment of the | |and seeks deletion of the said |
|Ombudsman is in the following | |recommendation as also the |
|terms: “The Government shall | |recommendation with regard to |
|appoint an Ombudsman who shall be | |separate performance audit of |
|an eminent expert independent of | |each Ministry and publication of|
|the Government to receive | |the result of such audit. |
|complaints of violations of | |According to the Union the |
|Guidelines and to recommend action| |Government has inbuilt machinery|
|in accordance with the | |for redressal and for audit |
|Guidelines.” | |purposes. |
15. A consideration of the objections filed by the Union would go to show
that the Union seriously disagrees with the recommendations of the
Committee in respect of the following matters:
(1) restricted publication of photographs of the Government functionaries
and political leaders alongwith the advertisement etc.
(2) appointment of an Ombudsman
(3) the recommendation with regard to performance audit by each Ministry.
(4) embargo on advertisements on the eve of the elections.
16. The rest of the objections are really in the nature of suggestions
which having been considered we are of the view that incorporation of the
said suggestions made by the Union or otherwise would not make any
substantial difference to the impact and effect of the said
recommendations. It is the recommendations with regard to the publication
of photographs; appointment of Ombudsman; carrying out independent audit
and embargo on advertisements during election time that will have to be
specifically dealt with in some details.
17. The remaining recommendations of the Committee appear to be
comprehensive and based on an analytical approach of the best practices
prevailing in other jurisdictions. The said recommendations, in our
considered view, would serve public interest by enabling dissemination of
information and spreading awareness amongst the citizens not only of the
government policies; achievements made and targets to be reached but also
the rights and entitlements of the citizens including the availability of a
host of welfare measures. The said recommendations, therefore, commend to
the Court for acceptance and are accordingly accepted.
18. At this juncture we may very briefly deal with the with the
situation prevailing in other jurisdictions across the globe. While,
undoubtedly there can be no blind adherence to the practices followed in
other jurisdictions as what may be appropriate to another country may not
be ideal in the Indian context, the correct approach will be to discern
some of the best practices prevailing in such jurisdictions and thereafter
to test the relevance of the same to our own country. Though the recitals
contained in the Report of the Committee do mention a consideration of such
good practices prevailing in other jurisdictions there is however no
discussion or even an indication of the precise contents of the practices
that were found by the Committee to be in existence in other countries. It
has therefore become necessary for us to deal with the matter though very
briefly. In this regard we may usefully, though illustratively, make a
reference to certain practices prevailing in Canada, United Kingdom, New
Zealand and Australia.
19. Insofar as Canada(Ontario) is concerned, it appears that the object
of issuing a government advertisement is : (i) to inform the public of
current or proposed government policies, programs or services available to
them; (ii) to inform the public of their rights and responsibilities under
the law and (iii) to encourage or discourage specific social behaviour in
public interest. Such advertisements are not to include the name, voice or
image of any functionary of the State and the primary objective of an
advertisement ought not to be to foster a positive impression of the ruling
government or a negative impression of any person, group or party critical
of the government.
20. In some of the foreign jurisdictions there is a mechanism for review
of advertisements on fixed parameters even before they are published and
publication/issuance thereof only upon passing of the required test. In
Australia and United Kingdom, there is an added emphasis on the cost
effectiveness of advertising campaigns. In Australia, advertising
campaigns of more than a particular pecuniary value i.e. 1million
Australian dollars require to undergo a cost benefit analysis wherein the
best options to achieve the intended objective of the campaign has to be
determined before launching the same.
21. The good practices adopted in other jurisdictions as noticed above do
find adequate reflection in the recommendations of the Committee which
further fortify our conviction to adopt the same.
22. This will require the Court to consider the different aspects of a
government advertisement campaign highlighted earlier on which we have
reserved our comments. The first is with regard to publication of
photographs of functionaries of the State and political leaders alonwith
the advertisement issued. There can be no manner of doubt that one
government advertisement or the other coinciding with some event or
occasion is published practically every day. Publication of the photograph
of an individual be a State or party functionary not only has the tendency
of associating that particular individual with either the achievement(s)
sought to be highlighted or being the architect of the benefits in respect
of which information is sought to be percolated.
Alternatively, programmes/targets for the future as advertised carry the
impression of being associated with the particular individual(s).
Photographs, therefore, have the potential of developing the personality
cult and the image of a one or a few individuals which is a direct
antithesis of democratic functioning.
23. The legitimate and permissible object of an advertisement, as earlier
discussed, can always be achieved without publication of the photograph of
any particular functionary either in the State of a political party. We
are, therefore, of the view that in departure to the views of the Committee
which recommended permissibility of publication of the photographs of the
President and Prime Minister of the country and Governor or Chief Minister
of the State alongwith the advertisements, there should be an exception
only in the case of the President, Prime Minister and Chief Justice of the
country who may themselves decide the question. Advertisements issued to
commemorate the anniversaries of acknowledged personalities like the father
of the nation would of course carry the photograph of the departed leader.
24. Insofar as the recommendation with regard to the appointment of
Ombudsman is concerned, we are of the view that for ironing out the creases
that are bound to show from time to time in the implementation of the
present directions and to oversee such implementation the government should
constitute a three member body consisting of persons with unimpeachable
neutrality and impartiality and who have excelled in their respective
fields. We could have but we refrain from naming the specific persons and
leave the said exercise to be performed by the Union Government.
25. Insofar as performance/special audit is concerned, we do not feel the
necessity of any such special audit inasmuch as the machinery available is
adequate to ensure due performance as well as accountability and proper
utilization of public money.
26. If Government advertisements adhere to the objects and parameters
mentioned above we do not feel the necessity of imposing a special curb on
government advertisements on the eve of the elections, as suggested by the
Committee.
27. In an earlier part of the present order we had indicated the power of
the purse that Government advertisements invariably involve. Needless to
say the concepts of fairness and even dispensation to all media/publishing
houses will have to be maintained by the Government be it at the Centre or
the States.
28. We close the matters on the aforesaid note by approving and adopting
the recommendations of the Committee except what has been specifically
indicated above with regard to
(1) publication of photographs of the Government functionaries and
political leaders alongwith the advertisement(s).
(2) appointment of an Ombudsman
(3) the recommendation with regard to performance audit by each Ministry.
(4) embargo on advertisements on the eve of the elections.
29. We also make it clear that the present directions issued under Article
142 of the Constitution cannot be comprehensive and there are several
aspects of the matter which may have escaped our attention at this stage.
In this regard, we would like to clarify that it is not the intention of
the Court to attempt to lay down infallible and all comprehensive
directions to cover the issue at hand. The gaps, if any, we are confident
would be filled up by the executive arm of the government itself inasmuch
as the attainment of constitutional goals and values enshrined in Part IV
of the Constitution is the conjoint responsibility of the three organs of
the State i.e. legislative, executive and the judiciary, as earlier
discussed.
………..........………………………J.
[RANJAN GOGOI]
…………..........……………………J.
[PINAKI CHANDRA GHOSE]
NEW DELHI,
MAY 13, 2015.
-----------------------
[1] (2014) 7 SCC 321
[2] WP (C) No.2926 of 2012 decided on 12.12.2012
[3] Naresh Shridhar Mirajkar & Ors. Vs. State of Maharashtra & Ors. –AIR
1967 SC 1=(1966) 3 SCR 744
[4] Kesavananda Bharati Sripadagalvaru Vs. State of Kerala & Anr. –
(1973) 4 SCC 225 (Para 1703)
-----------------------
33
IN THE SUPREME COURT OF INDIA
CIVIL ORIGINAL JURISDICTION
WRIT PETITION (CIVIL) NO. 13 OF 2003
COMMON CAUSE ...PETITIONER (S)
VERSUS
UNION OF INDIA ...RESPONDENT (S)
WITH
W.P. (C) No. 197 of 2004
&
W.P. (C) No.302 of 2012
J U D G M E N T
RANJAN GOGOI, J.
1. Common Cause and Centre for Public Interest Litigation, two
registered bodies, have approached this Court under Article 32 of the
Constitution seeking an appropriate writ to restrain the Union of India and
all State Governments from using public funds on Government advertisements
which are primarily intended to project individual functionaries of the
Government or a political party. The writ petitioners have also prayed for
laying down of appropriate guidelines by this Court to regulate Government
action in the matter so as to prevent misuse/wastage of public funds in
connection with such advertisements.
2. In the above stated writ petitions the writ petitioners while
conceding the beneficial effect of government advertisements which convey
necessary information to the citizens with regard to various welfare and
progressive measures as also their rights and entitlements, however, had
contended that in the garb of communicating with the people, in many
instances, undue political advantage and mileage is sought to be achieved
by personifying individuals and crediting such individuals or political
leaders (who are either from a political party or government functionaries)
as being responsible for various government achievements and progressive
plans. According to the petitioners such practice becomes rampant on the
eve of the elections. Such advertisements not only result in gross wastage
of public funds but constitute misuse of governmental powers besides
derogating the fundamental rights of a large section of the citizens as
guaranteed by Article 14 and 21 of the Constitution of India.
3. The writ petitions, filed as public interest litigations, were
resisted by the Union of India primarily on the ground that the issues
sought to be raised pertain to governmental policies and executive
decisions in respect of which it may not be appropriate for this Court to
lay down binding guidelines under Article 142. The decision of this Court
in Manzoor Ali Khan & Anr. Vs. Union of India & Ors.[1] and a pronouncement
of the Delhi High Court in Umesh Mohan Sethi Vs. Union of India & Anr.[2]
have been relied upon by the Union in support of its above stated stand.
4. The issues arising in the writ petitions were considered by this
Court in an earlier round of exhaustive hearings. By order dated
23.04.2014, this Court, on consideration of the respective stands of the
parties and by relying on the principles laid down in the decisions
specifically referred to in the aforesaid order dated 23.04.2014, inter
alia, held that there is no dispute that “primary cause of government
advertisement is to use public funds to inform the public of their rights,
obligations, and entitlements as well as to explain Government policies,
programmes, services and initiatives.” It was further held that only such
government advertisements which do not fulfil the above requisites will
fall foul of the area of permissible advertisements. This Court
acknowledged the fact that the dividing line between permissible
advertisements that are a part of government messaging and advertisements
that are “politically motivated” may at times gets blurred. As the
materials laid before the Court by the parties were found to be inadequate
for the purpose of evolving what would be the best practices keeping in
view the prevailing scenario in other jurisdictions across the globe, this
Court felt the necessity of constituting a Committee consisting of (1)
Prof. (Dr.) N.R. Madhava Menon, former Director, National Judicial Academy,
Bhopal (2) Mr. T.K. Viswanathan, former Secretary General, Lok Sabha and
(3) Mr. Ranjit Kumar, Senior Advocate to go into the matter and submit a
report to the Court.
5. In terms of the order of this Court, the Committee was duly
constituted and after full deliberations in the matter, a report had been
submitted by the Committee suggesting a set of guidelines for approval of
this Court. It is the plea of the petitioner that the said guidelines
should be approved by this Court and directions be issued under Article 142
of the Constitution of India for enforcement of the said guidelines until
an appropriate legislation in this regard is brought into effect by the
Parliament.
6. The contents of the guidelines suggested by the court appointed
Committee may be usefully extracted hereinbelow:-
“GUIDELINES ON CONTENT REGULATION OF
GOVERNMENT ADVERTISING
These Guidelines shall be called the Government Advertisement (Content
Regulation) Guidelines 2014.
They shall come into force with effect from......
2. APPLICATION:
(1) These Guidelines shall apply to all Government advertisements other
than Classified Advertisements.
(2) These Guidelines shall apply to the content of all Government
Advertising till a suitable legislation is enacted by the Government to
prevent the misuse of public funds on advertisements to gain political
mileage as distinct from legitimate Government messaging.
(3) These Guidelines shall apply to all –
(a) institutions of Government;
(b) public sector undertakings;
(c) local bodies and other autonomous bodies/organizations established
under a Statute.
3. DEFINITIONS:
In these Guidelines unless the context otherwise requires:
“Classified Advertisements” include public notices, tenders, recruitment
notices, statutory notifications.
“DAVP Guidelines” means the existing guidelines of the Directorate of
Advertising and Visual Publicity of the Ministry of Information and
Broadcasting dealing with the eligibility and empanelment procedures and
rates of payment and such other matters;
“Government” means Central Government, State Governments/Union Territory
Administrations and also includes local bodies, public sector undertakings
and other autonomous bodies/organisations established under a Statute.
“Government advertising” means any message, conveyed and paid for by the
government for placement in media such as newspapers, television, radio,
internet, cinema and such other, media but does not include classified
advertisements; and includes both copy (written text/audio) and creatives
(visuals/video/multi media) put out in print, electronic, outdoor or
digital media.
OBJECTS:
The objects of these Guidelines are:-
to prevent arbitrary use of public funds for advertising by public
authorities to project particular personalities, parties or governments
without any attendant public interest.
neither to belittle the need nor to deny the authority of the Union and
State Governments and its agencies to disseminate information necessary for
public to know on the policies and programmes of Government but only to
exclude the possibility of any misuse of public funds on advertisement
campaigns in order to gain political mileage by the political
establishment;
to address the gap in the existing DAVP Guidelines which only deal with the
eligibility and empanelment of newspapers/journals or other media, their
rates of payment, and such like matters and not on how to regulate the
content of Government advertisements;
to ensure that “all government activities satisfy the test of
reasonableness and public interest, particularly while dealing with public
funds and property”;
to ensure that government messaging is well co-ordinate, effectively
managed in the best democratic traditions and is responsive to the diverse
information needs of the public.
5. GOVERNMENT ADVERTISEMENT TO INFORM CITIZENS
Subject to these Guidelines Government may place advertisements or purchase
advertising space or time in any medium to inform citizens about their
rights and responsibilities, about government policies, programmes,
services or initiatives, or about dangers or risks to public health, safety
or the environment.
6. THE FIVE PRINCIPLES OF CONTENT REGULATION:
While placing advertisements or purchasing advertising space in any
media, the Government shall be guided by the following principles, namely:-
Advertising Campaigns to be related to Government responsibilities:
While it is the duty of the Government to provide the public with timely,
accurate, clear, objective and complete information about its policies,
programmes, services and initiatives since the public has a right to such
information, the content of government advertisements should be relevant to
the governments’ constitutional and legal obligations as well as the
citizens’ rights and entitlements.
Advertisement materials should be presented in an objective, fair and
accessible manner and be designed to meet the objectives of the campaign:
The material shall be presented in a fair and objective manner and shall be
capable of fulfilling the intended objectives;
Government shall exercise due caution while deciding the content, layout,
size and design of the message including the target area and the creative
requirement of the intended communication in order to ensure that the
maximum reach and impact are achieved in the most cost effective manner;
Content of advertisement must enable the recipients of the information to
distinguish between facts and analysis and where information is presented
as a fact, it should be accurate and verifiable;
Pre-existing policies, products, services and initiatives should not be
presented as new unless there has been a substantial change or modification
of such policies, products or services;
Content of advertisement should provide information in a manner that
accommodates special needs of disadvantaged individuals or groups
identified as being within the target audience;
Multiple formats may be used to ensure equal access;
Every effort shall be made to pre-test the material in case of large scale
campaign with target audiences.
Advertisement materials should be objective and not directed at promoting
political interests of ruling party:
Display material must be presented in objective language and be free of
political argument or partisan standpoint:
Government advertising shall maintain political neutrality and avoid
glorification of political personalities and projecting a positive
impression of the party in power or a negative impression of parties
critical of the government.
Advertisement materials must not –
Mention the party in government by name;
directly attack the views or actions of others in opposition;
include party political symbol or logo or flag;
aim to influence public support for a political party, candidate for
election; or
refer to link to the websites of political parties or politicians.
Government advertisement materials should avoid photographs of political
leaders and if it is felt essential for effective Government messaging,
only the photographs of the President/Prime Minster or Governor/Chief
Minister should be used;
Government advertisements shall not be used at patronizing media houses or
aimed at receiving favourable reporting for the party or person in power
Advertisement Campaigns be justified and undertaken in an efficient and
cost-effective manner:
Since it is the responsibility of government to safeguard the trust and
confidence in the integrity and impartiality of public services and hence
it should be the policy of governments to use public funds in such a manner
as to obtain maximum value for taxpayers’ money;
Advertisement Campaigns must be justified and undertaken in an efficient
and cost-effective manner;
The Government shall –
decide and announce beforehand, a list of personalities on whose birth or
death anniversaries, advertisements could be released every year and
specify which Ministry/Department could release the same;
avoid the issue of multiple advertisements by different departments and
PSUs of the same Government in Commemorative Advertisements and shall issue
a single advertisement only;
(d) Though advertising by governments should remain regulated all the
time, it is particularly important to scrupulously follow these principles
before and during the elections. As far as possible, during the period
prior to elections, only those advertisements required by law (such as
public health and safety advisories or job and contract advertisements)
alone be released by governments;
(e) Advertisement campaigns should only be need based; and
(f) In case of large volume advertisement campaigns, post-campaign impact
assessment is necessary to be included in the planning process itself and
shall identify the indicators to measure success when the campaign has
ended.
(5) Government advertising must comply with legal requirements and
financial regulations and procedures:
Governments shall ensure that all Advertisements comply with:-
relevant laws regarding privacy, intellectual property rights, election
laws and consumer protection laws apart from laws in respect of
broadcasting and media; and
copyright laws and ownership rights associated with works subject to
copyright are fully respected.
COMPLIANCE AND ENFORCEMENT:
The Government shall appoint an Ombudsman who shall be an eminent expert
independent of the Government to receive complaints of violations of
Guidelines and to recommend action in accordance with the Guidelines.
Heads of government departments and agencies shall be responsible for
ensuring compliance with these Guidelines and shall follow a procedure of
certification of compliance before advertisements are released to the
media.
As part of the performance audit of the Ministry/Department/Agency –
there shall be separate audit of the compliance of Advertisement
Guidelines by the Ministry/Department/Agency concerned; and
The annual report of such ministry/department/agency shall publish the
findings of such audit and the money spent on advertising.
The regulatory bodies of print and electronic media will be within their
powers to impose sanctions against such media groups acting against these
Guidelines in seeking or obtaining government advertisements.
8. GENERAL:
(1) These Guidelines shall be in addition to and not in derogation of the
existing Guidelines which are in place under the existing Advertisement
Policy of Government.
(2) These Guidelines are equally applicable to State Governments and its
agencies. The State Governments shall undertake amendments to whatever
policies they have in this regard and observe the Guidelines strictly in
letter and spirit.
The Ombudsman may recommend suitable changes to the Guidelines to deal with
new circumstances and situations.
The Government shall take necessary steps to initiate necessary legislation
on the subject, given its importance for democracy, human rights and good
governance.”
*******
Whether the guidelines recommended should commend acceptance and if so
whether the same should be made operative and enforceable under Article 142
of the Constitution.
7. In the earlier order dated 23rd April, 2014, this Court, after
holding that reasonableness and fairness consistent with Article 14 of the
Constitution would be the ultimate test of all State activities proceeded
to hold that the deployment of public funds in any Government activity
which is not connected with a public purpose would justify judicial
intervention. We would like to say something more.
Part IV of the Constitution is as much a guiding light for the Judicial
organ of the State as the Executive and the Legislative arms, all three
being integral parts of the “State” within the meaning of Article 12 of the
Constitution.[3]-[4] A policy certainly cannot be axed for its alleged
failure to comply with any of the provisions of Part IV. Neither can the
Courts charter a course, merely on the strength of the provisions of the
said Part of the Constitution, if the effect thereof would be to lay down a
policy. However, in a situation where the field is open and uncovered by
any government policy, to guide and control everyday governmental action,
surely, in the exercise of jurisdiction under Article 142 of the
Constitution, parameters can be laid down by this Court consistent with the
objects enumerated by any of the provisions of Part IV. Such an exercise
would be naturally time bound i.e. till the Legislature or the Executive,
as the case may be, steps in to fulfill its constitutional role and
authority by framing an appropriate policy.
8. Article 38 and 39 of the Constitution enjoin upon the State a duty to
consistently endeavour to achieve social and economic justice to the
teeming millions of the country who even today live behind an artificially
drawn poverty line. What can be the surer way in the march forward than by
ensuring avoidance of unproductive expenditure of public funds. This is
how we view the present matter and feel the necessity of exercise of our
jurisdiction under Article 142 of the Constitution to proceed further.
9. It is neither possible nor feasible or even necessary to try and
encompass the myriad situations where government advertisements are issued.
Indeed, the situations and circumstances; events and occasions on which
government advertisements are issued are infinite. Nevertheless, an
attempt can be made to arrive at a broad categorization for the purpose of
an illustrative understanding.
Advertisements highlighting completion of a fixed period of the
Government’s Tenure
Governments at the Centre as well as in the States often bring out
advertisements on completion of a number of days, months and years of
governance. In such advertisements, not only the ‘achievements’ are
highlighted even the different tasks which are in contemplation are
enumerated. By way of example one of the points highlighted may be supply
of electricity to each and every village. Though the achievements of a
Government should not be a matter of publicity and really ought to be a
matter of perception to be felt by the citizens on the results achieved,
such advertisements do have the effect of keeping the citizens informed of
the government functioning and therefore would be permissible.
Advertisements announcing projects:
On an everyday basis both the Government at the Centre as well as in
different States issue advertisements announcing events like laying of the
foundation of different development projects or the inauguration of
projects completed. In many of such advertisements the results obtained in
the particular field covered by the advertisement and the plan/targets for
the future are highlighted. Though such advertisements may look like a
report card of the Government there is an element of informative content in
such advertisements inasmuch as information is conveyed to the citizens as
regards government programmes, policies and achievements.
Advertisements issued on the occasion of birth/death anniversaries and
such other events:
Government advertisements are issued in the memory of great personalities
who occupy a significant place in our history, such as, the father of the
Nation, Mahatma Gandhi. While such persons must certainly be remembered,
what, however, would not be justified is several similar, if not identical,
advertisements issued by different Departments on the same occasion as is
happening today. One single advertisement issued by a Central Agency
should be enough to commemorate the anniversaries of the few acknowledged
and undisputed public figures whose contribution to the National Cause
cannot raise any dispute or debate.
Advertisement issued on certain other occasions, for instance, to mark the
centenary year of the Patna High Court does not serve any purpose and must
be avoided. Institutions need not be glorified. They must earn glory by
contribution and work.
Advertisements announcing policies and benefits for public:
All advertisements that fall within this category would be in public
interest. Such advertisements, as for example in respect of the National
Savings Schemes informing the public about benefits under the Scheme, are
purely informational and make people aware of their rights and
entitlements. Similarly, advertisements issued to generate public
awareness would also be justified on the touchstone of public interest. By
way of illustration, an advertisement issued by the Ministry of Health and
Family Welfare informing the public of preventable disease, safeguards to
be taken, vaccination programmes for the children, etc. would be highly
informative and, therefore, justified.
10. A connected facet of the matter which cannot be ignored is the power
of the Government to give/award advertisements to selected media houses and
the concomitant issue of freedom of press. Award of advertisements,
naturally, brings financial benefit to the particular media house/newspaper
group. Patronization of any particular media house(s) must be avoided and
award of advertisements must be on an equal basis to all newspapers who
may, however, be categorized depending upon their circulation. The
D.A.V.P. guidelines do not deal with the said aspect of the matter and
hence the necessity of incorporating the same in the present directions to
ensure the independence, impartiality and the neutrality of the fourth
estate which is vital to the growth and sustenance of democracy will have
to be weighed and considered by us.
11. An analysis of the Draft Guidelines as prepared by the Committee set
up by this Court in the case may now be made. The applicability of these
Guidelines is to all Government advertisements other than classifieds and
in all mediums of communication, thereby including internet advertising.
The objective of these Guidelines emphasize the Government’s responsibility
to disseminate information necessary for the public to know about the
policies and programmes of Government. It principally spells out five
principles to regulate the contents of advertisements, namely,
i) advertising campaigns are to be related to government
responsibilities,
ii) materials should be presented in an objective, fair and accessible
manner and designed to meet objectives of the campaign,
iii) not directed at promoting political interests of a Party,
iv) campaigns must be justified and undertaken in an efficient and cost-
effective manner and
v) advertisements must comply with legal requirements and financial
regulations and procedures.
The five broad Content Regulations contained in the draft guidelines framed
by the Committee are similar to the provisions found in the Australian
guidelines. However, under each broad head specific regulatory parameters
have been indicated which seem to embody what would be good practices in
the Indian context.
12. While under the first head the requirement of conformity of
Government advertisements with dissemination of information relating to
Government’s constitutional and legal obligations and the corresponding
rights and entitlements of citizens is being stressed upon, under the
second head objective presentation of the materials contained in an
advertisement bearing in mind the target audience has been emphasized.
Under the third head, the Guidelines state that advertisement materials
must not: (a) mention the party in government by its name, (b) attack the
views or actions of other parties in opposition, (c) include any party
symbol or logo, (d) aim to influence public support for a political party
or a candidate for election or (e) refer or link to the websites of
political parties or politicians. It is also stated in the Guidelines that
photographs of leaders should be avoided and only the photographs of the
President/ Prime Minister or Governor/ Chief Minister shall be used for
effective government messaging. The fourth head deals with cost
effectiveness of an advertisement campaign and measures to cut down
avoidable expenses. A somewhat restricted range of advertising activity on
the eve of the elections is also recommended. Appointment of an Ombudsman
to hear complaints of violation of the norms and to suggest amendments
thereto from time to time beside special performance audit by the concerned
Ministries is also recommended.
13. The Union Government and the State of Bihar have filed their
responses to the guidelines suggested by the Committee. The State of Bihar
suggests that some of the recommendations of the Committee, details of
which need not be noticed, are somewhat vague and require a more precise
definition or meaning. The only aspect of the suggestions where the State
has responded emphatically is with regard to the recommendation to confine
the publication of photographs of the President and the Prime Minister of
the country and the Governor and the Chief Minister of the State.
According to the State of Bihar such a restriction should not be imposed.
14. The Union in its response to the guidelines of the Committee has been
more categorical in suggesting certain changes as well as deletion of some
of the recommendations. It will, therefore, be necessary to specifically
notice the said objections raised by the Union.
|Content of the Recommendations | |Response of the Union |
|(1) Object of Guidelines |
|(a) To prevent arbitrary use of | |The meaning of the word |
|public funds for advertising by | |“arbitrary” according to the |
|public authorities. | |Union needs to be more |
| | |specifically defined. |
|(b) To exclude the possibility of | |According to the Union the |
|any misuse of public funds on | |expression “political mileage” |
|advertisement campaign in order to| |is inappropriate and should be |
|gain political mileage by the | |deleted. |
|political establishments. | | |
|(2) 5 Principles of Content Regulation |
|(a) Clause (vii) under the 2nd | |According to the Union this |
|point of the 5 principles | |should be done only when the |
|recommended by the Committee – | |same is feasible and whenever |
|Every effort should be made to | |public interest so demands. |
|pre-test the material in case of | | |
|large scale campaign with target | | |
|audiences. | | |
|(b) Clause (c)(i) under the 4th | |According to the Union the words|
|point of the 5 principles of | |“decide and announce beforehand”|
|Content Regulation states that | |may be deleted as the same is |
|“The Government shall decide and | |not feasible since issuance of |
|announce beforehand, a list of | |advertisement depends on a host |
|personalities on whose birth or | |of factors like availability of |
|death anniversaries, | |funds, last minute changes and |
|advertisements could be released | |the priorities of the |
|every year and specify which | |government. |
|Ministry/Department could release | | |
|the same. | | |
|(c) Clause (d) of the 4th point of| |According to the Union |
|the 5 principles of Content | |advertisement that serve public |
|Regulation states that “as far as | |interest may be issued at any |
|possible, during the period prior | |point of time. |
|to elections, only those | | |
|advertisements required by law | | |
|(such as public health and safety | | |
|advisories or job and contract | | |
|advertisements) alone be released | | |
|by the governments. | | |
| |
|(3) Ombudsman |
|The suggestion of the Committee | |The Union objects to the same |
|with regard to appointment of the | |and seeks deletion of the said |
|Ombudsman is in the following | |recommendation as also the |
|terms: “The Government shall | |recommendation with regard to |
|appoint an Ombudsman who shall be | |separate performance audit of |
|an eminent expert independent of | |each Ministry and publication of|
|the Government to receive | |the result of such audit. |
|complaints of violations of | |According to the Union the |
|Guidelines and to recommend action| |Government has inbuilt machinery|
|in accordance with the | |for redressal and for audit |
|Guidelines.” | |purposes. |
15. A consideration of the objections filed by the Union would go to show
that the Union seriously disagrees with the recommendations of the
Committee in respect of the following matters:
(1) restricted publication of photographs of the Government functionaries
and political leaders alongwith the advertisement etc.
(2) appointment of an Ombudsman
(3) the recommendation with regard to performance audit by each Ministry.
(4) embargo on advertisements on the eve of the elections.
16. The rest of the objections are really in the nature of suggestions
which having been considered we are of the view that incorporation of the
said suggestions made by the Union or otherwise would not make any
substantial difference to the impact and effect of the said
recommendations. It is the recommendations with regard to the publication
of photographs; appointment of Ombudsman; carrying out independent audit
and embargo on advertisements during election time that will have to be
specifically dealt with in some details.
17. The remaining recommendations of the Committee appear to be
comprehensive and based on an analytical approach of the best practices
prevailing in other jurisdictions. The said recommendations, in our
considered view, would serve public interest by enabling dissemination of
information and spreading awareness amongst the citizens not only of the
government policies; achievements made and targets to be reached but also
the rights and entitlements of the citizens including the availability of a
host of welfare measures. The said recommendations, therefore, commend to
the Court for acceptance and are accordingly accepted.
18. At this juncture we may very briefly deal with the with the
situation prevailing in other jurisdictions across the globe. While,
undoubtedly there can be no blind adherence to the practices followed in
other jurisdictions as what may be appropriate to another country may not
be ideal in the Indian context, the correct approach will be to discern
some of the best practices prevailing in such jurisdictions and thereafter
to test the relevance of the same to our own country. Though the recitals
contained in the Report of the Committee do mention a consideration of such
good practices prevailing in other jurisdictions there is however no
discussion or even an indication of the precise contents of the practices
that were found by the Committee to be in existence in other countries. It
has therefore become necessary for us to deal with the matter though very
briefly. In this regard we may usefully, though illustratively, make a
reference to certain practices prevailing in Canada, United Kingdom, New
Zealand and Australia.
19. Insofar as Canada(Ontario) is concerned, it appears that the object
of issuing a government advertisement is : (i) to inform the public of
current or proposed government policies, programs or services available to
them; (ii) to inform the public of their rights and responsibilities under
the law and (iii) to encourage or discourage specific social behaviour in
public interest. Such advertisements are not to include the name, voice or
image of any functionary of the State and the primary objective of an
advertisement ought not to be to foster a positive impression of the ruling
government or a negative impression of any person, group or party critical
of the government.
20. In some of the foreign jurisdictions there is a mechanism for review
of advertisements on fixed parameters even before they are published and
publication/issuance thereof only upon passing of the required test. In
Australia and United Kingdom, there is an added emphasis on the cost
effectiveness of advertising campaigns. In Australia, advertising
campaigns of more than a particular pecuniary value i.e. 1million
Australian dollars require to undergo a cost benefit analysis wherein the
best options to achieve the intended objective of the campaign has to be
determined before launching the same.
21. The good practices adopted in other jurisdictions as noticed above do
find adequate reflection in the recommendations of the Committee which
further fortify our conviction to adopt the same.
22. This will require the Court to consider the different aspects of a
government advertisement campaign highlighted earlier on which we have
reserved our comments. The first is with regard to publication of
photographs of functionaries of the State and political leaders alonwith
the advertisement issued. There can be no manner of doubt that one
government advertisement or the other coinciding with some event or
occasion is published practically every day. Publication of the photograph
of an individual be a State or party functionary not only has the tendency
of associating that particular individual with either the achievement(s)
sought to be highlighted or being the architect of the benefits in respect
of which information is sought to be percolated.
Alternatively, programmes/targets for the future as advertised carry the
impression of being associated with the particular individual(s).
Photographs, therefore, have the potential of developing the personality
cult and the image of a one or a few individuals which is a direct
antithesis of democratic functioning.
23. The legitimate and permissible object of an advertisement, as earlier
discussed, can always be achieved without publication of the photograph of
any particular functionary either in the State of a political party. We
are, therefore, of the view that in departure to the views of the Committee
which recommended permissibility of publication of the photographs of the
President and Prime Minister of the country and Governor or Chief Minister
of the State alongwith the advertisements, there should be an exception
only in the case of the President, Prime Minister and Chief Justice of the
country who may themselves decide the question. Advertisements issued to
commemorate the anniversaries of acknowledged personalities like the father
of the nation would of course carry the photograph of the departed leader.
24. Insofar as the recommendation with regard to the appointment of
Ombudsman is concerned, we are of the view that for ironing out the creases
that are bound to show from time to time in the implementation of the
present directions and to oversee such implementation the government should
constitute a three member body consisting of persons with unimpeachable
neutrality and impartiality and who have excelled in their respective
fields. We could have but we refrain from naming the specific persons and
leave the said exercise to be performed by the Union Government.
25. Insofar as performance/special audit is concerned, we do not feel the
necessity of any such special audit inasmuch as the machinery available is
adequate to ensure due performance as well as accountability and proper
utilization of public money.
26. If Government advertisements adhere to the objects and parameters
mentioned above we do not feel the necessity of imposing a special curb on
government advertisements on the eve of the elections, as suggested by the
Committee.
27. In an earlier part of the present order we had indicated the power of
the purse that Government advertisements invariably involve. Needless to
say the concepts of fairness and even dispensation to all media/publishing
houses will have to be maintained by the Government be it at the Centre or
the States.
28. We close the matters on the aforesaid note by approving and adopting
the recommendations of the Committee except what has been specifically
indicated above with regard to
(1) publication of photographs of the Government functionaries and
political leaders alongwith the advertisement(s).
(2) appointment of an Ombudsman
(3) the recommendation with regard to performance audit by each Ministry.
(4) embargo on advertisements on the eve of the elections.
29. We also make it clear that the present directions issued under Article
142 of the Constitution cannot be comprehensive and there are several
aspects of the matter which may have escaped our attention at this stage.
In this regard, we would like to clarify that it is not the intention of
the Court to attempt to lay down infallible and all comprehensive
directions to cover the issue at hand. The gaps, if any, we are confident
would be filled up by the executive arm of the government itself inasmuch
as the attainment of constitutional goals and values enshrined in Part IV
of the Constitution is the conjoint responsibility of the three organs of
the State i.e. legislative, executive and the judiciary, as earlier
discussed.
………..........………………………J.
[RANJAN GOGOI]
…………..........……………………J.
[PINAKI CHANDRA GHOSE]
NEW DELHI,
MAY 13, 2015.
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[1] (2014) 7 SCC 321
[2] WP (C) No.2926 of 2012 decided on 12.12.2012
[3] Naresh Shridhar Mirajkar & Ors. Vs. State of Maharashtra & Ors. –AIR
1967 SC 1=(1966) 3 SCR 744
[4] Kesavananda Bharati Sripadagalvaru Vs. State of Kerala & Anr. –
(1973) 4 SCC 225 (Para 1703)
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