COURTOFTHEDEMOCRATIC
IN THESUPREME
OF SRI TANKA
REPUBLIC
SOCIALTST
underAitlclc
in ihe'nraiterof applicaticn:
121(1) of the Constitution
A Bilititled"Divineguma"
Before :
Dr.ShiraniA. Bandaranayake ChiefJustice
Coutt
Judgeof the SuPreme
DeP,PC
PriYasath
Coutt
SuPreme
the
Judgeof
PC
EvaWanasundera,
S,C,SPecialDetermination
No.0U2012
Kaluge,
Madduma
Chamara
Road,
SriDevananda
No.14/1,
Thumbowila,
Piliyandala.
Petitioner
Counsel
Jayawardane'
withShantha
l.C.Weliamuna
Bandara
Kiriella
andMevan
nbepvardane
Sunutu
Vs.
;i. ii..ii
lE:iir::
,
i.,.'r:.+,;.
General'
Hon,TheAttorneY
DePaftntent'
nttoin.vGenerai's
Colombo'12.
ResPondent
Counsel
SC',
"'Fo,
AvanihiPerera,
Gerreral
theAttorneY
I
RenukaKusum
.Priyanthi'
Nikulasge
Waththa'
Munamale
ftfo,SSZ,
l(aluaggala,
Hanwella'
I ntervenient' ResPond ent
Counsel
PC',withM'S'A',Wadood' nMoh
IkramMohamed,
dffi ;' ndMirhu amed
iililil#i]j''-ffi ;'N;;;;ik'
Dr.NanaYakkarawasam
Vijitha'
Car'rjjawattege
Road'
No.7sC,Kenhinda
UdaEriYagama,
PeradeniYa'
Interuenient'ResPondent
and
Counsel
Wickramaratne
de Silva,PC.,withPubudini
Manohara
Gamage
Palitha
Kalamanakaruwange
Samurdhi.
SriLankaNidahas
Sangamaya'
Niladaringe
nu Sttnftunriikarana
No.3,Miriswatta,
Kotugoda'
Intervenient-ResPondent
Counsel
KushanD'nlwislvithKaushalyaNavai'attieand
Fernando
Chanrath
Fiarischandra'
Rasanga
Prasacj
Vithanage
Edirisinghe
Galkaduwa,
Imaclttwa'
dent
t ntervenient-ResPon
Cciurrsel
PC',with M.S.A.$ladocd,
l''4chamed,
Il<rarn
and MilhanMohamed
ntaieefaGathena
Udalagama,
Nilaritha
Sandalatha'
Chandrakanthi
Arachchige
Sinqamkutti
landa,
Meda
trto.iz+/o,
DomPe.
I ntervenient- ResPondent
Counsel
and
de Costa,PC.,with Dr.CodlinWaidyaratna
Dr.JaYatissa
Gamage
Palitha
Silva,
Padrna
DimiAdurage
West,
Pitipana
i'lo.2B4l3,
Homagama.
Intervenient'ResPondent
Counsel
SagaraKariYawasarn
DonJagaihKumara'
ArachchiEe
Sumithra
Road,
Udumulla
No.569,
Battaramulla,
Intervenient-ResPondent
Counsel
Jayawardane'
PC,,withSanjeeva
FaiszMusthapha,
Arr:lpragasam
andlrliranjsn
Musthapha
Faiszer
SunilWickramasinghe'
Arachchige
Solanga
Ikkiliweva,
No,506/469,
Attanakadawala.
Intervenient-ResPondent
Counsel
Cooray
AliSabrywithRuwanthi
M,U.M,
RuPasinghe,
Thanthilage
MohoPPu
Parangoda,
No,24414,
Dekatana.
Intervenient-ResPondent
Counsel
JaYawardena
Priyantha
Karr-tnaratne
FrajithRohana
Bogodage
Roac'
\11ai A, FanniPitiYa
Battaramulla'
Intervenient-ResPondent
Counsel
withtlejjazHizbuilah
Liyanapatabencly
Ciiandana
S,C.SPeciafDeterrn!natlon
No,02/2012
NanaYakkara'
P,B,D.J'W'
Road'
Kotte
LB|4,
PitaKotte'
Fetitisner
Counsel
Mendis
with Eshanthi
DaYaratne
SenanY
Vs.
t.
MP,
Hon.BasilRajaPaksa
Development'
ftfinitt t of EConornic
Development'
f"linitttyof Economic
464,T,B,JaYahMawatha,
10.
Colombo
2.
General,
Hon.The AttorneY
DePaftment'
Attotn.YGeneral's
12.
Colombo
ResPondents
Counsel
and
Wickramaratne
de Silva,PC',withPubudini
Manohard
pJithuGarnage
ior l't Respondent'
Perera'tt"
Avanthi
Genera!'
,o,.theAttorney
Kalamanakaruwange
Samurdhi
SriLankaNidahas
Sangamaya'
Niladaringe
t-taSambandikarana
No,3,Miriswatta,
Kotugoda.
Intervenient-ResPondent
Counsel
KushatiD,AlwiswiitrKausha|ya|lavaratneand
Fei"nando
Chamath
Sunil\A/ickramasinghe'
Arachchige
Solanga
No.506/469,Ikkiliweva'
Attanakadawala'
Interuenient-ResPondent
Counsel
Cooray
AliSabrywith Ruwanthi
M,U.M.
Dinushi
Chathurika
Arachchige
Ranasinghe
Perera,
Gangani
Mawatha'
iso/g, Parakrama
trto.
Notth,
Hokandara
Hokandara'
Intervenient-ResPondent
Counsel
Jayawardane'
PC,,with Sanjeeva.
Faiszwlusthapha,
rui''.'MusthaphaandNiranjanAru|pragasam.
S.C.SPecialDeterrnination
lto. 03/201?
1.
->
Limited'
(Guarantee)
Centrefor PolicyAlternatives
Lane,
2417,28th
Off FlowerRoad,
07'
Colombo
Sara"'anannuttu'
Dr.PaikiasothY
Avenue,
Ascot
t'1o.03,
05.
Colombo
Petitioners
Counsel
and
Fonseka
withBhavani
M,A,Sumanthiran
G,D,Gunatillake
Vs.
General,
Hon,TheAttorneY
DePartment'
General's
AttorneY
12'
Colombo
ResPondent
eounsel
Generalwith
PC',Solicitor
Y,l.W.Wijayatilaka,
Gamlath'
fiiftf'tittte' PC''ASG''Suhada ssc''
Jayasinghe
Birnba
Pulle'
Nerin
pc.,Asc,,Indika
d;;;i;;-diuE osc" SC''and
Heratn,lll,i"ttttu Fernando'
Suharshani
AvanthiPerera'tt''
,o,,the AttorneyGeneral
MalaniHettiarachchi'
Pttra'
No,25A, Samagi
South,
Hokanciara
Hokandara'
Intervenient'ResPondent
Counsel
Jayawardane'
PC',withSanjeeva
Musthapha,
'ruitiu.
Faisz
Arttlpragasam
andNiranjan
Musthapha
Couttassemb|edat10.45a.m.on27,08,20t2and11.30a.m,on29.08.2012.
ABillbearingthetit|e.'Divineguma,,Waspub|ishedontheGazetteofthe
RepublicofSriLankaonzT,oT,zotzandplacedontheorderPaperof
havechatengedthe constitutionarity
Fourpetitioners
parriament
on 10,08.2012.
ofthisBi|lbythreeseparatepetitionspresentedtothisCourtandhavethereby
invokedthejurisdictionofthisCourtintermsofArticlet2l(1)ofthe
Constitution.
givenduenoticeof the petitions'
was
General
Attorney
The
Hon,
I
learnedCounsel
sevei'al
corrsideration'
At thetimethe petltionsweretakenirtto
have
clnwhosebehaifFrapet's
as intervenients,
to be acjcjed
soughtpermission
werefiled
AlthoughrelevantpaBers
beenfiledas a partvto thesenroceeditrgs'
for
Counsel
on inquirylearned
the petitioners,
lateandno copieshad reached
Lreen
to ttte saicireciuests
submittedthat theyhaveno oLrjeciion
the petitioners
allowecand
vuei'e
all interventicns
granted,if the couit so desii-es'Accordingly
respondents'
as intervenient
wereaclded
thery
Counsei
leartredPi'esideni's
tfre peLitioners'
Learnedcounsei represetiting
counseland
learnedPresident's
02120L2,
in
respondent
1't
the
representing
solicitor
andthe learned
respondents
intervenient
counselrepresentirrg
lear.ned
Generallvere heardbeforethis
on behalfof the flon. The Attorney
General
29'08'2AI2'
at the sittinqsheldon 27'08'7AI2and
Berrch
tooktlp a
General
!earnec*coliritcr
thc Billivastakenintcconsideration,
Befcre
pre|iminaryobjectionstatingthatthetwopetitions,namelySCsD02l20l2and
SCSDo3lz[I2,shouldberejectedin|imine,fornoncomp|iancewiththe
mandatoryprocedurestipu|atedinArticlel2l(1)oftheConstitution.
in terrnsof Article121
of the learnedsolicitorGeneralwasthat
Thecontention
within
to delivercopiesto the Hon'Speaker
it is necessary
(1) of the constitution
of this court'
the jurisdlction
time period,in orderto duly invoke
the specified
TheBi||,havingbeenp|acedontheorderPaperofParliamentonl0,0B.2012,
the petitioners
andtherefore
on 17'08'2012
the periodof oneweekwouldelapse
the deliveryof the
the petitionto the supremecourtand
shouldhavepresented
copiestotheHon.Speakershou|dhavebeendoneonorbeforeLT,0B'20L2'
LearnedSolicitorGenera|submittedthatthepetitioninSCSD02/2012hadbeen
in sc sD
that the'petition
It wasalsosubmitted
onlyon 20.08'2012.
delivered
a3lz[Lz,a|thoughhadbeensentonorbeforelT.0s.2C12ithadbeendelivered
of Par'liament'The
secretary-Gerieral
the
to
btrt
speakei-,
Hon.
noi to the
in this regardwasthat the pi'ovisions
of tne learnedsolicitorGeneral
contentiorr
andreiiedon the
are mandatory
constitution
the
of
(1)
i21
Article
in
contained
determinationsofthisCourtinSriLankaTelecommunicationsBi|t(SCSD
and
securityBenefitsBill (sc sD No'137'91)
and 7l-qL)'soeial
Nos.5191,6/9i
5/2000)'
AgrarianDevelopmentBlll (SCSD
InSriLankaTelecommunicationsBi||(Supra)reierencewasmadetothe
atrdtlris Coulthad
ii-rArticle121(1) of the constitutiotr
contained
provisions
the
Articleas to the mannerin which
that
in
provisions
the
that
determinecl
jurisdiciionoftheCourtcouidbeinvo|<edaremandatory.Artic|e121ofthe
ju'isdictionin
cxerciseof constitutionar
ordinary
the
with
deais
Constitution
i.espectofBi||s.Aitic|e]-21(1),whichiEthere|evantArtic|einregardtothe
readsasfallows;
General'
Solicitor
by tireieartted
raise<l
obiection
Courtto ordinarily
" The jurisdictionof the Supreme
aforesaidmay be
determineany suchquestionas
written reference
invokedby the Presidentby a
by a
to the ChiefJustice'or by anycitizen
addressed
to the SupremeCourt'
petitionin writingaddressed
shallbe made'or suchpetitionshall
Sincereference
beingplacedon
be filed,withinoneweekof the Bill
anda copythereof
the order Paperof the Parliament,
to the Speaker'
shallat the sametime be delivered
"citizen"includesa body'whether
In this paragraph
if not lessthanthreeor unincorporated'
incorporated
fourthsofthemembersofsuchbodyarecitizens"'
l0
T h e p r o v i s i o n s c o n t a i n e d i n t h e a i o r e m e n t i o n e d A r t i c iconstitutional
e,setsouttheprocedure
the
exercise
ordinariry
order to
that has to be fo'oweciin
firstly
to Bills'In that it is necessary
regarci
in
court
supi'eme
the
of
jurisdiction
t o b r i n g t h e r e l e r , a n t B i l ! t o t h e a t t e n t i o n o f t h e S u p r e m ethe
C o Supreme
uftwithinaspecified
of
attention
the
to
it
Whilstbringing
timedurationof oneweek'
Hon'
a copYof the petitionto the
rdeliver
to
necessary
be
also
court,it would
Speaker.A.scieterminedbythisCourtinSriLankaTeiecommunicationsBil|
(Supr.a)thepror,islonscontainedinArticlel'?.Iaremandatoryinitsnatureand
thereforeitisnecessaryforstrictconrpliancebypartieswhowou|dbeinvoking
thesaidiurisdiction'
I n t h e i n s t a n t a p p l i c a t i o n s , v i z . , i n 0 2 l 2 0 L 2 , a s s t a t e dine a
rlier,thepetitionhad
whereas 03/2012'it
20,08.2012
orr
oniy
to the Hon.speaker
beendelivered
hadbeende|ivered0nI7,0B.zaL2,nottothet-lon.Speaker,buttothe
of the Parliament'
General
SecretaryI n t e r m s o f t h e p r o v i s i o n s c o n t a i n e d i n A r t i c | e 1 2 1 ( 1 ) oon
ftheConstitution,the
Bi* beingpraced the order
the
of
week
one
within
petitionshourdbe fired
PaperofthePar|iamentandacopythereofsha||atthesametimebe
de|iveredtotheSpeaker.ThisCourthasconsideredon
eweektobeaperiod
(supra))' sincethe Billhad
Bill
of 7 days(sri LankaTelecommunications
beenp|acedontheorderPaperofthePar|iamenton10.08,2012thepetition
.hadtobefiledbeforethisCourtintermsofthel2l(1)oftheConstitutiononor
before17,08,20t2'
LearnedCounselforthepetitionersinSCSD03/2012submittedthatthe
petitionerhasfiledthepetitionbeforetheSupremeCourtonlT,0B.20l2and
.copyofthesaiddocumentshadbeenservedontheHon.Speakerintermsof
A.rticlel21(1)oftheConstitution.InfactinRegister,edAttorneysforthe
in theirmotionhasstatedthus:
petitioners
ll
l3
(1)
in ternrsof Article121
ANDWI-IEREAS
a copyof ttrismotiotr
Constitution'
the
of
(1)
134
and
"Pl" to
marked
Documents
Petition'
the
with
iogether
on
theretohas beenserved
"P3c".and the Affidavit
and tlte
of Parlianrerit
Speaker
Honouraltie
tlre
Postand
by Registered
General
Attorney
Honourable
are
PostalArticleReceipb
the relevantReqistered
' ' ' "
heretcin proofof same
annexed
" '
ontheReceiptoftheaforesaiddocuments,theRegistraroftheSupremeCoutt'
whichreadsthus:
hadmadeentryin the Docket'
Attorneys-at& Balendra'
Sundaralingam
" Sinnadurai'
Affi'javitarrciDocurnents
Law fite Pror:y'Petitiort'
of
the receiptNc' 2'2T730418
ancl
P3c
to
P1
marked
for Rs'200"'
17'08'2012
ThedatestampofSupremeCourtRegistryonthepetitionreadsaslTAugust
20L2.
ThusitisapparentthatthepetitionhadbeenfiledbeforetheSupremeCourton
tT.0B.20r2andatthesametimeacopyofthesaidsetofdocumentsweresent
u n d e r R e g i s t e r e d P o s t t o t h e H o n . S p e a k e r i ncourt'
Par|ia
m edate
n t ' Tstamp
hepetitionershav
The
to this
Articre
Receipt
postar
copiesof the
alsosubmitted
Registereo
that it hadbeensentunder
inciicates
Articie
postar
Receipt
of the said
Poston t7'08'2012'
in SC
of the petitioners
petition
the
that
hadsubmitted
Generar
soricitor
Learned
onlyon Zb'OS'ZOfZ'
to the Hon'Speaker
delivered
been
had
SD03/2012
t)
shouldbe Eitlen
'{-hequestion
that arisesat this pointis as to the meaningthat
The said
(1) of the constitution'
to the worddeliveredin termsof Article121
in Article
contained
in the lightof the prcvisions
hasto be conside:-ec
meaning
filing of the petitionin the
121 (1) of the constitutionwith regardto the
SupremeCoutttoinvoketheConstitutionaljurisdictioninrespectofBi||bya
referredto eariier,is repeated
citizen,The reievantsentencein the provision,
henceforth:
shallbe made,or such
Suchreference
petition shall be filed, within one week of the
Bill being placed on the Order Paper of the
anda copy thereofshall at the same
Parliantent,
"
time be deliverecito theSPeaker
[o takesiepsfiistlyto iiie tirepetiLiort
for tl-,epetiiioiieis
necessaiy
Ii is therefoi.e
on the
placed
Courtwithina periodof oneweekof the Billbeing
in the Supreme
to the
a copyhas to be delivered
order Paperof the Parliament.Thereafter,
in orderto
that a petitioner'
Hon.speakerat the same time' Thismeans
will
in Article121 (1) of the constitution
stipulated
complywith the provisions
to seethat the petitionis filedin the supremecourt and
haveactsimultaneousiy
to the Hon'Speaker'
to be delivered
andhadsentthe sameto
in sc sD 02/2012wasfiledon 17.08.2012
Thepetition
Post, The meaningof the word
Hon.speakeron the sameclayby Registered
,.delivery"could be definedas mailedor dispatched'The Oxford English
as the
(2noEdition(VolumeIV), Page362)definesthe word delivery
Dictionary
the
handsof another,especially
actionof handingover or conv€yinginto the
goods entrustedto him for a
action of a carrierin deliveringlettersor
outby wayof
to a personat a distance,Suchcouldbe easilycairied
conveyance
I J
had beensent by F'egistered
postingand in the presentmatterthe documents
cf
coutt' In the determinaticn
Poston the samedayit wasfiledin the supreme
Billhad
the relevant
Bill (Supra)
thiscourtin sri LankaTetecommunicatlons
and the periodof
on 05'03'1991
beenplacedon the orderPaperof Parliament
court
Thepetitionto the Supreme
oneweekcameto an end on 12.03,1991.
the copyto the Hon'
withinone week on i2,"i3'199L,
had beensubmitted
to ihe above
Thiscourtreferring
hadbeenpostedonlyon 13.03.1991'
speaker
statedthus:
Cou''thasbeen
ihe petiticnto the Suprente
" Aithouglr
the copy
withinone week(on 12'03'1991)
presented
been posted on
to the Speakerhas horruever
^Ihe
oneweek'to be a
13,03,i991' Courtccnsidereo
of 7 daYs'
Period
that'
on to determine
53iflfhatythe Cortrtrnlent
Ha,,ring
petitionhad
" In the instantcase,as the copyof the
notbeende|iveredtotheHon,speakeratthesame
to the Supreme
timeas the petitionwas presented
Courttherehadbeennoproperinvocationofthe
jurisdictionof the SupremeCourt to hear and
the mattersin the petitions"'
determine
a
(1) of the constitution
it is apparentthat in termsof Article121
Therefore
7 daysperiodafterthe relevantBill
petitionhasto be filedwithinthe stipulated
and at the sametimethe said
is placedon the order Paperof the Parliament
processwhatmattersis
shouldbe sentto the Hon,speaker'In the
documents
and carriedout
to be simultaneous
the filingand the postingof the petitions
periodof 7 days'
withinthe stipulated
/
properly
it is clearlyevidentthat the petitionershad
in sucl'rcircumstances,
the matters
Courtto hearancjdetermine
of theSupreme
thejurisOiction
invoked
in thepeiitionin termsoi Article121(1) of the Constitution'
the basisthat the petitionhAd
Thesecondobjection,as statedearlier,vvason
it to
insteadof addressing
of the Parliarnent
beensentto the Secretany-General
theHon,SPeaker'
LearnedCounselforthepetitionercontendedthatthesaidobjectionisana|ogous
of this court not
deliveredto the Registrar
that pleadings
to a subnrission
is utterryfrivorous
the chiefJustice,It wasarsosaidthat the objection
reaching
of Articlei21 (1)of the constitution'
to the spiritandpurpose
andcontrary
in Articte121(1) regardingthe delivery
cotttained
of the provisiorrs
Thepurpose
to the supremecouft is
of a copyoi the petition,whichhad beensubmiited
la
Thispi-ovision
quitcclearand is st:tec in Article121(2) of the ccnstituticn'
asfollows:
..WherethejurisdictionoftheSupremeCourthasbeen
soinvokednoproceedingsshal|behadinPar|iament
inrelationtosuchBi||unti!thedeierminationofthe
Supremecoutthasbeenmade,ortheexpirationofa
periodofthreeweeksfromthedateofsuchreference
occursfirst"'
or petition,whatever
to ensurethat parliamentary
The objectiveand the purposethereforeis
duringthe pendency
in respectof theBillin questionaresuspended
proceedings
that processof sendingthe
of the inquirybeforethe supremecourt. whilst,
periodto the Hon'
petitionfiled in the supremecourt within the specified
beingsent to the
it cannotbe saidthat the documents
is mandatory,
Speaker
l5
time frameis not in
withinthe stipulated
of the Farliamerrt
Secretary-General
withArticle12i (i) of theCoirstitutiott'
cornpiiance
raisedLrythe learned
objections
the preliminary
For the reasonsaforesaid
areoverruled,
General
Solicitor
of a
"establishment
to its iongtitle is to providefor tne
Tire Biil,according
of Divineguma
to be calledancl known as the Deoartment
Department
of sri Lankaestablished
Authority
the samurdhi
by amalgamating
Development
oi'sri tankaestabiisfred
Authoriry
Deveiopnrent
by Act,No.30oi 1995,Southern
Authorityof Sri LanKa
by Act, No,lB of 1996,the UdarataDevelopment
Based
commutrity
Divinegunia
by Act, No,26of 2005;to establish
established
netwoi'kat the
at rut'allevelandto providefor a co-orrJinating
organizations
BasedBanks
Community
Divinequnra
level;to establish
ievelandirational
district
Samurdhi
communityBasedBankingsccieties,to repeal
and Divineguma
Authr;iflofSr:Lanka,Act,llc.30cft995,southei-nDevclcprnentA'uthoriiTof
of sri Lanka'
Authority
Development
Act,No.18of 1996andUdarata
sri Lanka,
Act,No,26of2005andtoprovideformattersconnectedtherewithorincidenta
thereto."
counselfor the
all learned
weretakenfor consideration
whenthethreepetitions
couldbe takentogether'
agreedthat all petitions
petitioners
to
intends
thatthe Billin question
contended
for the petitioners
counsel
Learned
Act, No'30 of 1995' Southern
repealthe samurdhiAuthori$of sri Lanka
Development
AuthorityAct, No.lB of 1996,and the Udarata
Development
knownas the
Department
Act, No.26of 2005in orderto form one
Authority
DivinegumaDevelopmentDepartment.SeveralsubmissionsWeremadeby
learnedCounseIforthepetttionersregardingtheinconsistencieswiththe
of the Constitution'
provisions
t6
fufther submittedthat the Bill nas been
Counselfor the petitioners
Learrred
to Article154(G) (3) of the
contrary
placedon the orderPaperof the Parliarnent
that are referredto in
as the Billdealswith severa!subjectrnatters
constitrrtion,
it
to the constitution'Therefore
schedule
Ninth
the
of
List
council
the Provincial
on the basisof the
thel groundof challenge
was deciced,first to consider
I
I
requii-enrenttocomp|ywithArtic|e154(G)(3)oftheConstitt-ttion'
to the
with the 13thA'mendment
along
Article154 (G), whichwas introduced
anciArticle154(G) (3)
Councils
tlealswiththe statutesof Provincial
Constitutiott,
readsasfollows:
set out in the
" No Bill in respectof any rnailer
law utrlesssucfr
Councillist shallbecotrie
Provincial
after its
BiIi has been referredby the tii.esident,
in the Cazcttcand befcreit ls pla;edon
publicaticn
to every Provincial
the OrderPaperof Parliament'
of its viewsthereon'within
for the expression
Council
and
in the reference'
suchperiodas maybe specified
to the passing
a) WhereeverysuchCouncilagrees
of the"
df the Bill,suchBillis passedby a majority
presentandvoting;or
of Parliament
Members
to the
do not agree
b) Whereoneor moreCouncils
of the Bill,suchBill is passed by the
passing
majorityrequiredby Atticle82;
special
t7
somebut not
that whereon suchreference'
Provided
agreeto the passingof a
Councils
all the Pro'''incial
onlyto the
lawapplicable
Bill,suchBillshallbecome
ProvittcesforwhichtheProvincialCouncilsagreeing
uponsuchBilibeirrg
to the Biiihavebeenestablished'
oi Pallianietii
by a maiorityoi the ivlem'uet's
pa5secl
.
andvoting"'
Present
wasbrieflythat several
the petitioners
for
counsel
learrred
all
of
Thesubmission
in the
contained
subjects
severa!
rr,rith
of the Billin questionweredealing
clauses
to the constitution' Learned
provincial
councilList in the Ninthschedule
in the
the sutrjects
tabulized
03/2012had
sD
sc
in
petitioners
the
for
counsel
councillist' The said
to the itemsin the Provincial
Billthat havea co-relation
Tabteisgivenbelow:
Tablei
in the Bill
Clause
Carrying out
Clause 4(a)
activitiesas may be
develoPment
to alleviatePovefi and to
required
bringabouta societyguaranteeing
(Divineguma
equitY
social
to the
Relateditem in NinthSchedule
Constitution
List)
Council
(ListI - Provincial
Item 2 -
- ImPlementation
Planning
economic
Plans
of Provincial
dst
,ifr
Item 10- RuralDeveloPment
#
na
DePaftment)
DeveloPment
de
i v
l8
withinthe
Disiribution
@tYforeach
(Divineguma
individualand farnily
ment)
DePaft
DeeveloPment
Clause4(f)
infrastructure
anc sociai;
itfrysrca',
for
facilities
develoPment of
(Divineguma
Province
: coffirctmn acti'lift'in
1
resPectof arrYsubjectin
the Pi'cvlnclalCouncil
livelihooos
DeveloPment
Departnrent)
Item 6 -
Province
I
Item
destitute Personsand
families
DeveloPment
Rehabilitationand
welfareof PhYsicallY'
mentatlYand sociallY
Persons
handicaPPed
Item7:4 -
Reliefof the disabled
andunemPloYable
2l
l9
Iterni.5 -
ti'iarketiairs
resources
ancjfinancial
availabie
rrhysical
for the saiC PUrPose(Divin5gurna
meni)
DePaft
Development
- ImPlementation
Item 2 - Planning
economic
cf provincial
Plans
i
upliftliving
andsocially
economically
Item 5;3
Department)
Developrnent
.
activiiYin
Construction
resPectof atrYsubjectin
the ProvincialCouncil
List
Item 6
Roads and bridgesand
ferriesthereonwithinthe
Province
Item 10- RuralDeveloPment
Clause9
- CommunitY
Organizations
Item
t7:L
Co-oPerative
undertakings and the
organization,reg!stration,
and audit of
supervision
co-oPerative
Societies
withinthe Province
)
-
Co'oPerative
withiit
DeveloPnrettt
the Province
Regulation of
28.
trninctlrP0rated
literarY'
trading,
scientific, religious
and other societies
anciassociations
se i1(k)
to undertakeand
deveioPntent
proqramnieslautiched with the
labour contribution of the
ffiImplementation
economic
Plans
of provincial
item 10- RuraiDeveloPment
ccrrimunitY (Ccrnmu;ritY Based
Organizations)
Co-oPerative
17:t
ffiaRegional
I
undeftakings and the
registration'
organization,
and audit of
suPervision
co-oPerative
societies
withinthe Province
Item
Co-oPerative
L7:2
develoPmentwithin the
Province
Item
28
Regulation of
, . -
23
unincorporated tradinj
literary,scientific,
religious
and other societiesand
associations
Ciause.i6(e)
provicie,tethnicai
assistarrce
andoilrerservices
for the
developrnent
oi' agricuiturai
or any
otherproducts
of its beneficiaries
in
the reEion(Dirrineguma
Regional
Organizations
Clausei6 (0 -- maintaincentresfor
Agi'iculture,inc!uding
agricultural extension,
prornotionand education
for provincial purposes
andagrictrltural
services
item 15- Marketfairs
storage
andmarketing
ltheRurchase,
of productsand raw-materialand
organize trading centres and
shopping centres (Divineguma
Regional
Organizations)
22
10: RuralDtveloPment
ttr
\1
fairs
m 15- Market
\
I
It(
\
I
I
I
\
Organizai-iorrs)
the formulation
2i .- subjectto
of
and imPlementation
to
PolicYin regard
Irlational
arrdPlanning'
develcPmettt
to Promote'
the Po\^Jer
engage ln
establish and
incius"rial'
agricultural'
trading
commercial and
and cther
enterPrises
incomegeneratingPrcjects
\
II
\
\
\
the Provin"___-.*-rnrithin
\
- ^ . 1 .welTarc
nrplfafC
welfare
i
anci
7lt:-Rehabil'rdtron
ftffi7;t:-Rthtb'littttn
\
anrl
ment-a111'
of Plrvsicall'1'
handicaPPed
sociallY
Item
persons
the disabledand
7:4 - Reliefof
unemPloYable
@winsof
the extent
money to
under any
permittedbY or
law madebYParliament
of moneY
item35:ftre norrowing
or
bY
the extent Permitted
made bY
under anY law
Parliament
L)
f
does
that the Billin questionin its entirety
submitted
solicitorGeneral
Learned
counciisor anyother
cf the Pt'ovincial
functicns
and
po\ryers
the
cn
not impinge
contention
councilslist' In supportof this
in the Provincial
stipulated
nratters
|earnedSo|icitorGenera|reiiedonthemajoritydeterminatiotrinlnRethe
constitution' Bili anci the Frovinciai
Thirteenth Amendment to the
provi'cialc.r,rrcils
Lhai:
^
it rrass[atecj
councifBi* (sc sD Nos.7 +gftr)where
bodies
power arrdare cnty subsicjiary
legislative
so,rereign
exercise
not
do
that itr tei'rnsof
it was aisosubtiti'cted
powers'
iegislative
limited
exercising
shailnot abdicateor in any
Parliament
the
constitution,
the
of
Article76 (1)
with an\'r
powerandshallnot set rlp enyauthcr"it'7
it's leglslaiive
alienate
nranner
legislative
Power.
to
Amendment
the Tlrirteenth
regarcling
It is correctthat in ihe clei.errnirration
theConstituticn,themajorit,vjudgmenthadclearlyreferredtothe
Courthad
the Supreme
decision
the n'laiority
in
that
In
position.
afoi.ementioned
he|clthatrle|egated|egis|ationis|eqa|andpermittedanddoesnotitrvolveany
powerin favourof any newlycreated
legislative
of
abdication
or
abandonment
legislativeauthority.Itfurthersaidthatnonew|egis|ativebodyarmedwiih
to make
is createdwhena newbodyis empowered
authority
generallegislative
legislation'
subordinate
However,thequestionwhichhasarisenhereisnotwithregardtotheauthority
thathasbeengiventotheProvincialCounci|s,ProvinciaICouncilsWer
submittedby the learned
to makestatutesand what had been
empowered
So|icitorGeneralreferringtothemajorityjudgmentinthedetermination
basedon the saidpowerfor the Provincial
was
Amendment
13th
the
regarding
thiscourt is with regardto the
before
question
The
statutes.
to enact
councils
in
on subjectsstipurated
to passregisration
of the centrarGovernment
authority
theProvincialCouncillistoftheNinthScheduletotheConstitution'
.., A
wasto introduce
to the Constitution
of the 13thAmendment
Themainpurpose
had
of the Constitution
pro,rincia!
in the countrv.Article154 (A) (1)
Counciis
for everyProvince'The
councilto be established
for a Provincial
madeDrovision
pcuJer
councilsin 1987'\^/astC deVolve
cf Provinciai
of 'r.heintroduciion
prjrpose
vrlhichwashithertovesterjintheCentralGovernmenttoProvincia|Counci|s.
in Town ancl country Pianning
As referrecto in the detei'rnination
(Aniendment)Bill(SCSD03/20i1),intheSuprcrneCcuftceternrinatloninln
constitution Bill and the Provincial
RE ThirteenthAmendrnentto the
of the Provincial
statedthattheintroduction
councilsBill (supra),it wasclearlv
of authority,whichincluded'inter
devolution
of
purpose
t5e
for
was
councils
by the SupremeCourt
WaSemphasized
devo|ution,Thisposition
alia,|egis|ative
commissionerof Agrarian services
in MaddumaBandarav Assistant
statedthus:
B0)urhereit tryas
([2003]2 Sril-,P..
''lhej-3:hHnlertomenitothet]ons[itution,w|rici.rcar-i]e
er I9B7' was chieflyintroduced
into effectin Novemb
powerfrom the Central
for the purposeof devolving
Councils"'
to theProvincial
Government
councilswere empoweredto make
such power,the Provincial
In devolving
whichdealswith the statutesof
statutes.Articlei54 (G) of the constitution,
in the
of the threelistsenumerated
refertb the applicability
provincial
Councils,
their
councilsare exercising
whereProvincial
gthscheduleto the constitution
sametime Afticle154 (G) refersto
povrerto make such Statutes. At the
hasto refercedain
president
of the Republic
the
Excellency
His
where
instances
of the viewsof the Provincial
councilsfor the expression
Billsto the provincial
(G) (2) clearlystatesthat a Bill for the
councils.For instance,Article154
of chapterXVil A of the
pt'ovisions
of amendmentoi' repealof the
purpose
of its
councilfor the expression
to the provinciar
hasto be referred
Constitution
25
L
it is pracedon the or"der
before
ancj
Gaz-erre
the
in
viewsaftei-its pubrication
PaperofPar|iament.Whi|stArticle154(G)(2)reiertotheChapiercontaining
A r t i c l e s 1 5 4 A t o 1 5 4 V , A r t i c l e 1 5 4 ( G ) ( 3 ) r (G)
e f e(3),
r t o vrhich
a B i i l was
i n r e'eferred
spectofmattersset
154
\
Ai'ticie
saici
Tire
rist.
provinciar
counc'
the
in
out
toearlier,ciearlyprovidecifor,tirepr.oceciui-ethathastobefoilornledhyth
C e n t r a l G o v e r n m e n t w h e n i t b e c o m e n e c eschedule
s s a r y t to
o l ethe
g i sconstitution'
lateonasubjectwhichis
irinth
tr-re
of
List
cou'cii
in the provincial
contained
Inthat,iftheBillinquestiorrdealswithasubjectmattersetoutintheProvinciai
CounciiList,sooiiaftei,itspubllcationintheGazetteandbeforeitisplacedon
theorderPaperofPar|iament,itisnecessaryforHisExce|lelrcythePresidentto
i'eferittoeveryProvinciaICounci|fortheexpressiorrofitsviews.
C o n s i d e r i n g t h e p t r r p o s e o n w h i c h t h e l 3 t h A raid
m e n d m einnAn-icie
t w a s ir54
ntroduced,andt
this procecrure down
cor-rncils,
pro'inciar
of the
esrabrishnrent
( c ) ( 3 ) h a s t o l r e r e g a r d e d a s m a r r c l a t o r y s i n cthat
e o t hthis
erw
i s ebeen
t h e the
cbjectofthesaid
has
it is to be noted
ivioreover
Articlewouldbe defeated'
usedin the
beenrepeatedrrT
has
sha*
wor',1
the
and
of the regisrature
intention
Constitution'
Article154(G)(3) oi the
I n f a c t i n t h e d e t e r m i n a t i o n o f l n R e T h(supra),
i r t e e nthe
t hmajority
A m e n ddecision
menttothe
counc*s Bit
provinciar
the
constitutionand
authority
of devolving
in the direction
taken
were
that
to the steps
hasreferred
thus:
thispositionit wasstated
to
Referring
Councils'
to Provincial
itselfto
rnustdevelopand adapt
" Healthydemocracy
The activitiesof Central
circumstances'
changing
substantialpowers and
include
now
Government
at a levelcloserto
be exercised
functionsthat should
(4) hasin mindthe aspirations
the people'Article27
of
in the governance
participate
to
people
of the local
LO
of
a handing-over
theirregions.The Billsenvisage
for the ciomesticaffairs of each
responsibiliW
of a unitedSri Lanka'
province,
withinthe framework
needs
theparticuiar
Theygivenev/scopefor meeting
air,.i desii-esof ihe pecple of each prcvince'
cf cnsuringthat
;s a'uscfuln'leans
Decentraiizaticn
is foundedon an
in the provinces
administration
cf the ;reeCs and wishesof the
understanding
and
of elecLed
pro"'inces.The creation
respective
institutionswith respectto each
administrative
means- gives
province- that is what devolution
principle'"
shapeto thedevr:lutionary
evidentthat in termsof Article154(G) (3) of the Constitution,
It is therefore
Lrst,lt is
Councii
to in tlte Provinciai
to the subjectmattersreterred
withregarci
before
Councils
the Provincial
to consult
Govei-nment
for the Central
nrarrdatory
placingsuchtype of a Bill on the OrderPapercf Parliarnent.Whensuch
by uraycf provisions
Councils,
authorityhas beenattributedto the Provincial
that cannotbe takenavvayunlessby way of
in the Constitution,
contained
laid down in orderto amend such constitutional
followingthe procedure
are
of a pieceof legislation
and the language
Wherethe intention
provisions.
for
thereshouldnot be any necessity
clearandwhenthereare no ambiguities,
of suchprovisions.
or interpretation
anytypeof conptruction
that
dealswith severalmatters
As shownearlierin TableI, the Billin question
in termsof
List.In thecircumstances,
Council
underthe Provincial
comedirectly
that beforeplacingthe Bill on the Order
Articlei54 (G) (3), it is mandatory
for the
Councils
paperof the Parliament,
to the Provincial
for it to be referred
that the
of their views. LearnedSolicitorGeneral,Submitted
expression
statedin ListII oi
provincial
on the subjectS
haveno poweror authority
Councils
11
that the firstitem
to the constitution.He fudhercontended
the Ninthschedule
functions'Learned
in the saiClistis fhe NationalPolicyon all subjectsand
commission
Transpott
of the l'Jaticna!
reliedon the enactrnent
solicitorGeneral
r:f that Act are in
Act, No,37of 1991andstateCtirat someof the prq'isions
prcvincialCouncilt.,ist,but as the Act relatestc
conftictwith itenr B of the
Couttandit
brrthe Supreme
wastrphe!d
vaiiCity
Poiicyits constituticnal
l',lationai
wasaisomadeto thedetermination
rnajorify,Reference
by a simple
hacipassed
Bi!|, (sc 5D 02/91"
of thrscourt is In Re Agrarianservices(Amendment)
in tirat Biilwerematterscf
and statedthat all matters,Jeaitrruith
and 0419L)
to the
it fell withinListil oi the NiirthSchedule
ilationa!Pclicyandther-efore
wasthat sincethe
Genera!
solicitor
of the learned
Thecontention
constitution.
Policyand in ternrsof the reservedlist of the Ninth
Bill dealswith National
central
Pclicyon all subjeclsis a matteronly for the
National
schedr;le,
of Article154
doesnotcomewithinthe purview
the Billin question
Gcvernmetrt,
\
(G)(3) of the Constilution.
in sc sD No'02]20i7'
counselfor tne i"'t respotrdent
LearnedPresidenl's
Vi of
in Chapter
principles
stlpulated
of StatePolicv
thattheDirective
contended
of the State'
Policyframeurork
is the National
the constitution
deals
Counsel
as statedby the learnedPresident's
chapterVI of the constitution
of statePolicy.Asclearlystatedin Article27 (I) of
Principles
with the Directive
setoutin Article27 (2) areto guide
principles
thesaiddirective
the constitution,
of laws
in the enactment
andthe cabinetof Ministers
the President
Parliament,
givesa general
of the country.Article27 (2) of the constitution
andgovernance
socialistsocietywouldbe
outlookof severalareason whicha democratic
bythe State'
aspledged
established
is a matter
and functions
Policyon all subjects
that National
It is not disputed
haveno
councils
andthe Provincial
withinthe scopeof the centralGovernment
2
8
;
f
to
o s r r € r : o t e g i s l a t e o n n a t i o n a l p o councils
l i c y n o r iifs tthe
h e rcenti'e
e a r e qhas
u i r edecided
mentfortheCeirtral
ihe provinciar
G:..efimenrto consuit
policy'
an national
on a nratterbased
legislate
to the directive
equated
be
cannot
poticywithina countr/
the Naticnar
However,
principlesottheStatePolicv,asit)vou|c!varyfromonesubjectareatoanother
National
areasasdeaiingwith
subiect
or
a subiect
to car.ego'ise
constitutiorr'
Ii is not feasible
chapterVI of the
in
tc
referred
neun
poiicymererybecauseit has
tn
T h e r e h a v e b e e n v a r i o u s m e t h o d s a d c po*cy,
ptedto
e c i ccietermination
least:-''":T::subject
ind the
Nationar
a B*r dearswith
functional
areareferredtcl in
and zsrzoo3)the
z4rz0$
sD
(sc
Bit
the Bilr'eferredto
ln
water services Reference
contained
the matter
to decidewhether
provinciarpubric
applied
rryas
test
The
v
and others
in Kamarawathei
poricy,
Nationar
sets
S e r v i c e C o r n r n i s s i o r r , l . l o ; t ! r W e s t estated
r n P rthat
o v i ncircular
c e ( [ 2 No'95111
001]lSriL,R,t),the
transfers
to teacher
of
supremecourt referring
an importantaspect
is
vvlrich
poricyon teachertransfers,
out the Nationar
education'
considered
to be careful|y
Nationa|?.:]:u,:''
clear|yshowthat
of differentsubiect
Theseinstances
respect
in
priorto i$ promulgation'
and duryformurated
areas'
poticy'
the Bi*is on national
whbther
is
whicharisesat thisiuncture
Thequestion
Coudhas
Bill (Supra)'this
Reference
on Water Services
of nationalpolicy
In the determination
question
the
on
determine
on
testto be usedto
determination
the
laiddownthatthe
in
to
referred
test. Thistest was
had
functionar
the
be
wourd
(supra),and this court
Bit
pranningAmendment
Town and country
statedthus:
the questionas to whethera subject
" In determining
rnatterisdealingwiththeNationalPoiicyornot,it
the nature
to consider
wouldthereforebe necessary
oftheprovisionscontainedintheBill,itspurposeand
in the
contained
in the lightof the provisions
objec*"
ThirteenthAmendmenttotheConstitutionandthe
to the
in the NinthSchedule
threeListsenumeratec!
Constitution.''
and the objectof the
the pui'pose
to consider
It wouldthereforebe necessary
poilcy
with the Nationar
dears
Biil
the
whether
to
as
question
the
Bilrin deciding
subiect'
of therelevant
of a
ear|ier,refer to the estab|ishment
I,he |ong iitie uf thc Bi!|, statecl
Thiswould
Development'
of Divineguma
knownas the Department
Department
whichare currentry
of threc Authorities
by the amaigamation
be estabrished
wouldbe the samurdhiAuthority'southern
ThesethreeAuthorities
functional.
Authority' The Bill also
Development
Udarata
and
Authority
Development
at
Basedorganizations
community
of Divineguma
for the establishment
provides
leveland nationallevel' It is also
rurallevelwith a networkat the district
communityBasedBanksand Divinegunta
intendedto establishDivineguma
CommunityBasedBankingsocieties.Intheprocess'provisionistobemadet
Authorityand Udarata
Development
repealthe samurdhiAuthority,southern
AuthoritY'
DeveloPment
has beenntadeto National
reference
that in the Preamble
It wascontended
readsasfollows:
Policy.ThePreamble
economlc
"WHEREAS,in furtherance of the
effect to the
develoPment
Processand in giving
30
nationalpolicyofalleviatingpovertyandensuring
y to improvetl-re
socialequity,it hasbecomeilecessaf
individual,family and group centeredlivelihood
"
activities'
develoPrnent
i
\
\
itratexceptfcrrthe wordnationalpolicyihe restcrfthe
demons'rrates
Tirisciear.ly
to in
severalsubjectareaswhichare i'eferred
and includes
itemsare functional
whenthe longtitle and the Preamble
councilList, Forinstance,
the Provincial
at grassroot levelof the
togetherthey referto the development
areconsidered
Itein 1Col'theListI
basedon ruralclevelopntertt'
society,Thisis urirjoubtecily
andthe entiresubjectis thereforedevolved'It is
dearswith rurardeveropment
aspectsof the povrerto
alsoto be notedthat in Item 21 of ListI, the functional
andtrading
cornmercial
inCustrial,
andengage!n agricultural,
establish
prornote,
in
projects
lvithinthe provinceis '.rested
andotherincomegenerating
enterprises
Councils'
ihePt'ovii-rcial
Mahinda
LearnedsolicitorGeneralcontendedthat the Bill is based on the
of
chintanayathat was approvedby the cabinetand that it was in respect
for the centralGovernment'Learned
Policy,whichis an areareserved
National
or any
Counselfor the petitionerssubmittedthat the saidMahindaChintanaya
shouldnot overrideand contradictthe
otherdocumentby the Government
of SriLanka,
Constitution
law
is the basicandfundamental
It is to be bornein mindthatthe Constitution
are subjectto
of the land,whichreignssupremeand all otherdocuments
to notethat in terms
it is alsorelevant
in the Constitution.
contained
provisions
Courthasthe soleandexclusive
the Supreme
of Article120of the Constitution,
any questionas to whetherany Billor any provision
to determine
jurisdiction
theConstitution'
rryith
therecfis inconsistent
a t
J I
Asclearlyexamined
earlierseverai
subjects
the
contained
in ihe Billcome'r,rithin
Counci!
Provincial
l-istin the NinthSchedule
to the Constitution.
The subjects
in Tablei. it is also
rverecompareC
l,riththe relative
itemsin the NinthSchecjule
quiteclearthat the provisions
of the Bill are functional
in nature,whichare
closely
linkedto the maiterscontained
in the Bill. Accordingly
the Brllcannotbe
\
poiicyandLherefore
considered
as settingout nationai
doesnot cornewiihinihe
purviewof ListIi ot tne tlintnScheduie
It is not Cisputcd
to the Constii,,rticiri,
thatthe Pro,rincial
Councils
oi'the
carneintotieingas a i'esuit
of the introducticn
'fhirteenth
a
Amendment
to tlreCorrstittrtion
irr 1987.Tl-re
objectwasto achieve
reginreon the basisof the powerwhichrnras
moredemocratic
constitutional
hithertovested+;iththe Centi-al
Government,
beingderrolved
to the Provincial
Centres,By this process/
have
in termsof Article154(G),certainrestrictions
beenplacedwithregardto enacting
which
lawsby the Centre
overthe subjects
are specificaliy
cievolved
to the Provincial
Councils,When there are such
restrictions,
thosecannotbe overcome
by a merereference
of nationalpolicy.
SuchaciionslvculConly negatethe whole prlrposeof the introduction
of
Councils
Provincial
in orderto devolvepower. As Bindra(Intei-pretation
of
Statute,7ti'edition,B0)hascorrectlypointedout anclas hasbeenreferredto in
Maithripala
([1998]2 Si-iL.R.333),
Senanayake
v Mahindasoma
"Unless
thewordsareclear,the Courts
shouldnot so
construe
the provisoas to attributeto the Legislature
to give with one hand and take away with
another"(emphasis
added),
Learned
Solicitor
Generalsubmitted
that the Billunderreferencehad not been
referred
by HisExcellency
the President
to the Provincial
Councils
as stipulated
in
Article154(G)(3) of the Constitution.
)L
Sincesrchprocedurelrasnotbeencomp|iedwith,wemakeadeterminationin
L23 0f the constitutionthat the Bil! in
termsof Aticle 120 read with Article
councilList and shall
the Provincial
qrresthnis in respectof mattersset out in
to
the President
referredby His Excellency
been
has
it
unless
lainr
beconne
not
bv;Aiticle154(G) (3) cf the constittttion'
fourrcilas required
e./eryprovincial
;!
cornpliance
u"ithc'ut
paperof parilament
As,.e Bi,,hasbeenpracedin the order
wculd
no detet'nrination
of Ai'ticle154(G)(3) of the constitlttion'
withprovisions
of challenge'
bemadeat thisstageon the othergrounds
given
of the valuableassistance
we shallplaceon recordour deepappreciation
csunselfor the 1"
learnedPresident's
by all learnedcounselfor the petitioners,
counseland learnedcounselfor
President's
learned
all
0212012,
in
t
responden
on
soricitorccnerelivhc appeared
ar,j ilre reai-iiecj
resporicerrts
the intervenient
General'
behalfof the Attoi'neY
Bc'*,^----jk^
St^^- l\
A. Bandara@9ke,
Dr.Shirani
ChiefJustice
- t l \
dAq:%
PriyddfhDep,PC,,
Court
Judgeof theSuPreme
o
bY*'**'=
PC.,
EvaWanasundera,
Court
Judgeof the SuPreme
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