EMERGENCY PROVISIONS

INTRODUCTION –
The Emergency provisions are contained in Part XVIII of the Constitution, from Articles 352 to
360. These provisions enable the Central government to meet any abnormal situation in the
country effectively. The objective behind the incorporation of these provisions in the
Constitution is to safeguard the unity, sovereignty, integrity and security of the country, the
democratic political system, and the Constitution.

There are three types of Emergency, these are:

1. National Emergency (Article 352):- An emergency due to war, external aggression or

armed rebellion is known as ‘National Emergency’. The word ‘proclamation of
emergency’ means National Emergency.
2. State Emergency (Article 356):- An Emergency due to the failure of the constitutional
machinery in the states is known as ‘State Emergency’. The two other names for State
Emergency is ‘Presidents Rule’ or ‘constitutional Emergency’. The Constitution does not
use the word ‘emergency’ for the State Emergency.
3. Financial Emergency (Article 360):- Financial Emergency occurs due to a threat to the
financial stability or credit of India.

NATIONAL EMERGENCY
Under Article 352, the President can declare a national emergency, when the security of India
or a part of it is threatened by the war or any external aggression or armed rebellion. It may be
noted that the President can declare a national emergency even before the actual occurrence
of war or external aggression or armed rebellion if he is satisfied that there is an imminent
danger.

External Emergency - When a national emergency is declared on the ground of ‘war’ or

‘external aggression’, it is known as ‘External Emergency’.

Internal Emergency - when a national emergency is declared on the ground of ‘armed

rebellion’, it is known as ‘Internal Emergency’.

The 42nd Amendment Act of 1976 enabled the President to limit the operation of a National
Emergency to a specified part of India. Originally, the Constitution of India mentioned ‘internal
disturbance’ as the third ground for the Proclamation of a National Emergency, but the
expression was too vague and had a wider connotation. Hence, the 44th Amendment Act of
1978 substituted the words ‘armed rebellion’ for ‘internal disturbance’. Thus, it is no longer
possible to declare a National Emergency on the ground of ‘internal disturbance’, as it was done
in 1975 by the Congress government headed by Indira Gandhi. The President, however, can
proclaim a national emergency only after receiving a written recommendation from the
cabinet. The 38th Amendment Act of 1975 made the declaration of a National Emergency
immune from the judicial review. But, this provision was subsequently deleted by the 44th
Amendment Act of 1978.

Approval by Parliament:-

The Proclamation of Emergency must be approved by both the Houses of Parliament within one
month from the date of its issue. Originally, the period allowed for approval by the Parliament
was two months but was reduced by the 44th Amendment Act of 1978. However, if the
Proclamation of Emergency is issued at a time when the Lok Sabha has been dissolved, or the
dissolution of the Lok Sabha takes place during the period of one month without approving the
Proclamation, then the Proclamation survives until 30 days from the first sitting of the Lok
Sabha after its reconstitution, provided the Rajya Sabha has in the meantime approved it.
If approved by both the Houses of Parliament, the Emergency continues for six months and can
be extended to an indefinite period with an approval of the Parliament for every six months.
This provision for periodical parliamentary approval was also added by the 44th Amendment
Act of 1978.
Every resolution approving the Proclamation of Emergency or its continuance must be passed
by either House of Parliament by a special majority, i.e.,
A. A majority of the total membership of that house, and
B. A majority of not less than two-third of the members of that house present and voting.

This special majority provision was introduced by the 44th Amendment Act of 1978. Previously,
such resolution could be passed by a simple majority of the Parliament.

Effects of National Emergency:-

A proclamation of Emergency has drastic and wide-ranging effects on the political system.
These effects can be grouped into three categories:
1. Effect on the Centre-state relations,
2. Effect on the life of the Lok Sabha and State assembly, and
3. Effect on the Fundamental Rights.

Declarations of National Emergency:-

This type of Emergency has been proclaimed three times so far—in 1962, 1971 and 1975.
The first Proclamation of National Emergency was issued in October 1962 on account of
Chinese aggression in the NEFA (North-East Frontier Agency, now Arunachal Pradesh), and was
in force till January 1968.
The second Proclamation of national Emergency was made in December 1971 in the wake of an
attack by Pakistan. Even when this Emergency was in operation, the third Proclamation of
National Emergency was made in June 1975. Both the second and third proclamations were
revoked in March 1977.
The first two proclamations (1962 and 1971) were made on the ground of ‘external aggression’,
while the third Proclamation (1975) was made on the ground of ‘internal disturbance’, that is,
certain persons have been inciting the police and the armed forces against the discharge of
their duties and their normal functioning.
The Emergency declared in 1975 (internal Emergency) proved to be the most controversial.
There was widespread criticism of the misuse of Emergency powers. In the elections held to the
Lok Sabha in 1977 after the Emergency, the Congress Party led by Indira Gandhi lost and the
Janta Party came to power. This government, appointed the Shah Commission to investigate
the circumstances that warranted the declaration of an Emergency in 1975. The commission did
not justify the declaration of the Emergency. Hence, the 44th Amendment Act was enacted in
1978 to introduce a number of safeguards against the misuse of Emergency provisions.

STATE EMERGENCY / PRESIDENT’S RULE

Article 355 imposes a duty on the Centre to ensure that the government of every State is
carried in accordance with the provisions of the Constitution. It is this duty in the performance
of which the Centre takes over the government of a state under Article 356 in case of failure of
constitutional machinery in State. This is popularly known as ‘President’s Rule’. It is also known
as ‘State Emergency’ or ‘Constitutional Emergency’.
The President’s Rule can be proclaimed on two grounds;
1. Article 356 empowers the President to issue a proclamation if he is satisfied that a situation
has arisen in which the government of a state cannot be carried on in accordance with the
Provisions of the Constitution. Notably, the President can act either on a report of the governor
of the State or otherwise too (i.e., even without the governor’s report).
2. Article 365 says that whenever a state fails to comply with or to give effect to any direction
from the Centre, it will be lawful for the President to hold that a situation has arisen in which
the government of the State cannot be carried on in accordance with the provisions of the
Constitution.

Approval by Parliament:-
The Proclamation of Emergency must be approved by both the Houses of Parliament within two
months from the date of its issue. However, if the Proclamation of Emergency is issued at a
time when the Lok Sabha has been dissolved, or the dissolution of the Lok Sabha takes place
during the period of two months without approving the Proclamation, then the Proclamation
survives until 30 days from the first sitting of the Lok Sabha after its reconstitution, provided
the Rajya Sabha has in the meantime approved it.
If approved by both the Houses of Parliament, the President’s Rule continues for six months. It
can be extended for a maximum period of three years with the approval of the Parliament,
every six months. However, if the dissolution of the Lok Sabha takes place during the period of
six months without approving the further continuation of the President’s Rule, then the
Proclamation survives until 30 days from the first sitting of the Lok Sabha after its
reconstitution, provided the Rajya Sabha has in the meantime approved its continuance.

Effects of President’s Rule:-

The President can acquire the following extraordinary powers when the President’s Rule is
imposed in a state:
1. He can take up the functions of the state government and powers vested in the governor or
any other executive authority in the State.
2. He can declare that the powers of the state legislature are to be exercised by the Parliament.
3. He can take all other necessary steps, including the suspension of the constitutional
provisions relating to any authority in the State.

Therefore, when the President’s Rule is imposed in a state, the President dismisses the state
council of ministers headed by the chief minister. The state governor, on behalf of the
President, carries on the state administration with the help of the chief secretary of the State or
the advisors appointed by the President. This is the reason why a proclamation under Article
356 is popularly known as the imposition of ‘President’s Rule’ in a state. Further, the President
either suspends or dissolves the state legislative assembly. The Parliament passes the state
legislative bills and the state budget.

Declarations of President’s Rule:-

For the first time, the President’s Rule was imposed in Punjab in 1951. By now, all most all the
states have been brought under the President’s Rule, once or twice or more. When general
elections were held to the Lok Sabha in 1977 after the internal Emergency, the ruling
Congress Party lost, and the Janta Party came to power. The new government headed by
Morarji Desai imposed President’s Rule in nine states (where the Congress Party was in power)
on the ground that the assemblies in those states no longer represented the wishes of the
electorate. When the Congress Party returned to power in 1980, it did the same in nine states
on the same ground. In 1992, President’s Rule was imposed in three BJP-ruled states (Madhya
Pradesh, Himachal Pradesh and Rajasthan) by the Congress Party on the ground that they were
not implementing sincerely the ban imposed by the Centre on religious organisations. In a
landmark judgement in Bommai case (1994), the Supreme Court upheld the validity of this
Proclamation on the ground that secularism is a ‘basic feature’ of the Constitution. But, the
court did not uphold the validity of the imposition of the President’s Rule in Nagaland in 1988,
Karnataka in 1989 and Meghalaya in 1991.

Comparison of National Emergency with President’s Rule

NATIONAL EMERGENCY (ARTICLE 352) PRESIDENT’S RULE (ARTICLE 356)

1. It can be proclaimed only when the 1. It can be proclaimed when the
security of India or a part of it is threatened government of a state cannot be carried on
by war, external aggression or armed in accordance with the provisions of the
rebellion. Constitution due to reasons which may not
have any connection with war, external
aggression or armed rebellion.

2. During its operation, the state executive 2. During its operation, the state executive is
and legislature continue to function and dismissed, and the state legislature is either
exercise the powers assigned to them under suspended or dissolved. The President
the Constitution. Its effect is that the Centre administers the State through the governor,
gets concurrent powers of administration and the Parliament makes laws for the State.
and legislation in the State. In brief, the executive and legislative powers
of the State are assumed by the Centre.

3. Under this, the Parliament can make laws 3. Under this, the Parliament can delegate
on the subjects enumerated in the State List the power to make laws for the State to the
only by itself, that is, it cannot delegate the President or to any other authority specified
same to any other body or authority. by him. So far, the practice has been for the
President to make laws for the State in
consultation with the members of Parliament
from that State. Such laws are known as the
President’s Acts.

4. There is no maximum period prescribed 4. There is a maximum period prescribed for

for its operation. It can be continued its operation, that is, three years. Thereafter,
indefinitely with the approval of Parliament it must come to an end, and the normal
every six months. constitutional machinery must be restored in
the State.
 5. Under this, the relationship of the Centre 5. Under this, the relationship of only the
with all the states undergoes a modification. State under Emergency with the Centre
undergoes a modification.

6. Every resolution of Parliament approving 6. Every resolution of Parliament approving

its its Proclamation or its continuance can be
Proclamation or its continuance must be passed only by a simple majority.
passed by a special majority.
7. It affects the fundamental rights of the 7. It has no effect on the Fundamental Rights
citizens. of the citizens.

8. Lok Sabha can pass a resolution for its 8. There is no such provision. It can be
revocation. revoked by the President only on his own.

FINANCIAL EMERGENCY

Article 360 empowers the President to proclaim a Financial Emergency if he is satisfied that a
situation has arisen due to which the financial stability or credit of India or any part of its
territory is threatened.
The 38th Amendment Act of 1975 made the satisfaction of the President in declaring a Financial
Emergency final and conclusive and not questionable in any court on any ground. But, this
provision was subsequently deleted by the 44th Amendment Act of 1978, implying that the
satisfaction of the President is not beyond judicial review.

Approval by Parliament:-

A proclamation declaring financial Emergency must be approved by both the Houses of

Parliament within two months from the date of its issue. However, if the Proclamation of
Financial Emergency is issued at a time when the Lok Sabha has been dissolved, or the
dissolution of the Lok Sabha takes place during the period of two months without approving the
Proclamation, then the Proclamation survives until 30 days from the first sitting of the Lok
Sabha after its reconstitution, provided the Rajya Sabha has in the meantime approved it.
Once approved by both the Houses of Parliament, the Financial Emergency continues
indefinitely till it is revoked. This implies two things:
1. There is no maximum period prescribed for its operation; and
2. Repeated parliamentary approval is not required for its continuation.
A resolution approving the Proclamation of Financial Emergency can be passed by either House
of Parliament only by a simple majority, that is, a majority of the members of that house
present and voting.
A proclamation of Financial Emergency may be revoked by the President at any time by a
subsequent proclamation. Such a proclamation does not require parliamentary approval.

Effects of Financial Emergency:-

The consequences of the Proclamation of a Financial Emergency are as follows:
1. The executive authority of the Centre extends (a) to directing any state to observe such
canons of financial propriety as are specified by it, and (b) to directions as the President may
deem necessary and adequate for the purpose.
2. Any such direction may include a provision requiring (a) the reduction of salaries and
allowances of all or any class of persons serving in the State; and (b) the reservation of all
money bills or other financial bills for the consideration of the President after they are passed
by the legislature of the State.
3. The President may issue directions for the reduction of salaries and allowances of (a) all or
any class of persons serving the Union; and (b) the judges of the Supreme Court and the High
Court.
Thus, during the operation of a financial emergency, the Centre acquires full control over the
states in financial matters. H N Kunzru, a member of the Constituent Assembly, stated that the
financial emergency provisions pose a serious threat to the financial autonomy of the states.

NOTE – No Financial Emergency has been declared so far, though there was a financial crisis in
1991.

CRITICISM OF EMERGENCY PROVISIONS:-

Some members of the Constituent Assembly criticised the incorporation of emergency

provisions in the Constitution on the following grounds, these are:
1. ‘The federal character of the Constitution will be destroyed, and the Union will become all
powerful.
2. The powers of the State—both the Union and the units—will entirely be concentrated in the
hands of the Union executive.
3. The President will become a dictator.
4. The financial autonomy of the State will be nullified.
5. Fundamental rights will become meaningless and, as a result, the democratic foundations of
the Constitution will be destroyed.’

Articles Related to Emergency Provisions:

ARTICLE NO. SUBJECT-MATTER

352. Proclamation of Emergency
353. Effect of Proclamation of Emergency
354. Application of Provisions Relating to distribution of revenues while a
Proclamation of Emergency is in operation
355. Duty of the Union to protect states against external aggression and
internal disturbance
356. Provisions in case of failure of constitutional machinery in states
357. Exercise of legislative powers under Proclamation issued under Article
356.
358. Suspension of provisions of Article 19 during emergencies
359. Suspension of the enforcement of the rights conferred by Part III
during Emergencies
359A. Application of this part to the State of Punjab (Repealed)
360. Provisions as to Financial Emergencies