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Constitutional Amendment and Basic Structure: Article 368

Notes on Article 368, the three kinds of amendment, ratification by states, the basic structure doctrine from Golaknath to Kesavananda, and the amendments exams ask.

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Constitutional Amendment and Basic Structure: Article 368 — GK24 title card
Constitutional Amendment and Basic Structure: Article 368 — GK24 title card

The Constitution of India is neither as rigid as the American Constitution nor as flexible as the British system; the makers placed the power to amend it in Article 368 and then divided that power into three kinds, so that ordinary provisions can be changed easily while the federal core needs the states to agree. The Supreme Court added a limit of its own in 1973, holding that Parliament may amend any part of the Constitution but may not destroy its basic structure. Between them, Article 368 and the basic structure doctrine are the most heavily examined part of Indian Polity.

Article 368 and the three ways of amending

Article 368 stands in Part XX of the Constitution and is titled Power of Parliament to amend the Constitution and procedure therefor. Amendments fall into three classes. Some provisions are changed by a simple majority of each House, as an ordinary law: admission and formation of new states and alteration of areas and names under Article 4, creation or abolition of state legislative councils under Article 169, and the provisions on administration of Union territories and scheduled areas. These lie outside Article 368. The second class needs a special majority of each House, that is a majority of the total membership of the House and a majority of not less than two thirds of the members present and voting; most of the Constitution, including the Fundamental Rights and the Directive Principles, is amended this way. The third class needs that special majority in Parliament and, in addition, ratification by the legislatures of not less than one half of the states by a simple majority.

What needs the states to ratify

  • Election of the President and the manner of that election, Articles 54 and 55.
  • Extent of the executive power of the Union and of the states, Articles 73 and 162.
  • The Supreme Court and the High Courts, and the distribution of legislative powers between the Union and the states.
  • The Seventh Schedule with its three lists, and the representation of states in Parliament.
  • Article 368 itself.

The procedure in Parliament

An amendment bill may be introduced in either House by a minister or a private member and needs no prior permission of the President. It must be passed by each House separately by the required majority, since there is no provision for a joint sitting if the two Houses disagree; a state legislature cannot initiate an amendment, though it may pass a resolution under Article 169 asking for a legislative council. After ratification where it is required, the bill goes to the President, whose assent became obligatory with the Twenty-fourth Amendment of 1971, so an amendment bill can neither be withheld nor returned.

How the basic structure doctrine grew

In Shankari Prasad in 1951 and again in Sajjan Singh in 1965, the Supreme Court held that an amendment was not ordinary law and could take away Fundamental Rights. In Golaknath in 1967 a bench of eleven judges reversed that view by six to five and held that Fundamental Rights could not be abridged at all. Parliament answered with the Twenty-fourth Amendment, and the question came back in Kesavananda Bharati in 1973, where a bench of thirteen judges held by seven to six that Parliament may amend any part of the Constitution but cannot alter its basic structure. The Forty-second Amendment of 1976 tried to place amendments beyond judicial review by adding clauses 4 and 5 to Article 368; in Minerva Mills in 1980 the Court struck both down, holding that judicial review and the limited amending power are themselves part of the basic structure. Waman Rao in 1981 fixed 24 April 1973, the date of the Kesavananda judgment, as the line after which laws added to the Ninth Schedule may be tested, and I. R. Coelho in 2007 confirmed that such laws must answer the basic structure test. The doctrine was used again in 2015 to strike down the Ninety-ninth Amendment and the National Judicial Appointments Commission for touching the independence of the judiciary.

Amendments a student must know

AmendmentYearWhat it did
First1951Added the Ninth Schedule and reasonable restrictions on free speech
Forty-second1976Fundamental Duties, the words socialist and secular in the Preamble; called the mini Constitution
Forty-fourth1978Lok Sabha term back to five years; right to property made a legal right under Article 300A
Fifty-second1985Anti defection law in the Tenth Schedule
Sixty-first1989Voting age lowered from twenty-one to eighteen
Seventy-third and Seventy-fourth1992Panchayats and municipalities, Eleventh and Twelfth Schedules
Eighty-sixth2002Article 21A, free and compulsory education for ages six to fourteen
One hundred and first2016Goods and Services Tax, Articles 246A, 269A and 279A
One hundred and sixth2023One third of seats for women in the Lok Sabha and state assemblies

The elements repeatedly held to be part of the basic structure are the supremacy of the Constitution, the rule of law, the separation of powers, judicial review under Articles 32 and 226, the federal character of the Union, secularism, the sovereignty and unity of India, the republican and democratic form of government, free and fair elections, the independence of the judiciary and the limited amending power of Parliament itself.

Exam Point of View

Four kinds of question come from this topic. First, the plain article and part: 368 in Part XX, and which provisions can be amended by a simple majority, where Articles 4 and 169 are the stock answers. Second, arithmetic: the two limbs of a special majority, and ratification by not less than one half of the states by a simple majority, with two thirds of the states offered as the trap. Third, cases and years, most often Golaknath 1967, Kesavananda Bharati 1973 with its thirteen judge bench and 7 to 6 split, Minerva Mills 1980 and I. R. Coelho 2007; examiners also ask which case was overruled by which. Fourth, amendment numbers matched with their work, where the Forty-second, Forty-fourth, Fifty-second, Sixty-first, Seventy-third, Eighty-sixth, One hundred and first and One hundred and sixth are the ones asked. Statement based questions add a favourite trap: the Constitution nowhere defines the basic structure, so any statement saying it does is false.

Important Facts

Amending articleArticle 368, Part XX of the Constitution
Simple majority provisionsArticles 4 and 169 and Union territory provisions, amended outside Article 368
Special majorityMajority of total membership plus two thirds of members present and voting
RatificationLegislatures of not less than one half of the states, by simple majority
Basic structure caseKesavananda Bharati v State of Kerala, 1973, 13 judges, 7 to 6
Case overruled in 1973I. C. Golaknath v State of Punjab, 1967
Assent made compulsoryTwenty-fourth Amendment Act, 1971
Clauses struck downArticle 368 clauses 4 and 5, in Minerva Mills, 1980
Ninth Schedule cut off date24 April 1973, fixed in Waman Rao, 1981
Mini ConstitutionForty-second Amendment Act, 1976
Anti defectionFifty-second Amendment, 1985, Tenth Schedule
Amendment struck down in 2015Ninety-ninth Amendment and the National Judicial Appointments Commission

Practice MCQs on this topic

Q1.Indian PolityEasy

The procedure for amending the Constitution of India is laid down in which Article?

  1. A.Article 356
  2. B.Article 360
  3. C.Article 368
  4. D.Article 370
Show answer

Correct answer: C. Article 368

Explanation

The correct answer is C, Article 368. It is titled Power of Parliament to amend the Constitution and procedure therefor, and it sets out both the special majority needed in each House and the cases in which the legislatures of the states must also ratify the change.

Option A is wrong because Article 356 provides for President's rule in a state on the failure of constitutional machinery. Option B is wrong because Article 360 deals with a financial emergency. Option D is wrong because Article 370 contained the temporary provisions with respect to the State of Jammu and Kashmir. The four numbers are close enough that candidates mark the wrong one in a hurry, so link 368 with amendment, 352 with national emergency, 356 with President's rule and 360 with financial emergency before the examination.

Q2.Indian PolityMedium

Article 368 of the Constitution of India falls in which Part?

  1. A.Part XVIII
  2. B.Part XIX
  3. C.Part XX
  4. D.Part XXI
Show answer

Correct answer: C. Part XX

Explanation

The correct answer is C, Part XX. Part XX of the Constitution is a very short part, headed Amendment of the Constitution, and it contains Article 368 alone. Its position near the end of the Constitution, after the emergency and miscellaneous provisions, is what examiners test.

Option A is wrong because Part XVIII carries the emergency provisions, Articles 352 to 360. Option B is wrong because Part XIX is the miscellaneous part, with Articles 361 to 367. Option D is wrong because Part XXI holds the temporary, transitional and special provisions, which include Articles 369 to 392. Note how neatly the parts follow the article numbers here: if you remember that Article 368 sits alone in its own Part XX, the neighbouring parts fall into place on either side.

Q3.Indian PolityEasy

The doctrine of the basic structure of the Constitution was laid down by the Supreme Court in which case?

  1. A.Shankari Prasad case, 1951
  2. B.Golaknath case, 1967
  3. C.Kesavananda Bharati case, 1973
  4. D.Minerva Mills case, 1980
Show answer

Correct answer: C. Kesavananda Bharati case, 1973

Explanation

The correct answer is C, Kesavananda Bharati case, 1973. A bench of thirteen judges, the largest ever assembled at the time, held by a majority of seven to six that Parliament may amend any part of the Constitution, including the Fundamental Rights, but may not damage or destroy its basic structure.

Option A is wrong because Shankari Prasad in 1951 upheld the First Amendment and held that an amendment was not ordinary law, so it could take away Fundamental Rights. Option B is wrong because Golaknath in 1967 went to the other extreme and held that Fundamental Rights could not be abridged at all; it was this ruling that Kesavananda overruled. Option D is wrong because Minerva Mills in 1980 applied the doctrine rather than laid it down, striking down clauses 4 and 5 of Article 368. The chain Shankari Prasad, Golaknath, Kesavananda, Minerva Mills is worth memorising in that order.

Q4.Indian PolityMedium

Which earlier judgment was overruled by the Supreme Court in the Kesavananda Bharati case?

  1. A.Golaknath case
  2. B.Berubari Union case
  3. C.S. R. Bommai case
  4. D.Minerva Mills case
Show answer

Correct answer: A. Golaknath case

Explanation

The correct answer is A, Golaknath case. In Golaknath in 1967 an eleven judge bench held by six to five that Parliament had no power to amend the Fundamental Rights. Parliament replied with the Twenty-fourth Amendment of 1971, and in Kesavananda Bharati in 1973 the Court overruled Golaknath, restoring the amending power while subjecting it to the basic structure limit.

Option B is wrong because the Berubari Union opinion of 1960 concerned the cession of Indian territory and the status of the Preamble, and was not overruled here. Option C is wrong because S. R. Bommai came much later, in 1994, and dealt with President's rule under Article 356. Option D is wrong on the calendar alone, since Minerva Mills was decided in 1980, seven years after Kesavananda, and followed it rather than being overruled by it. Watch the direction of overruling in such questions.

Q5.Indian PolityHard

By which amendment was the President's assent to a Constitution Amendment Bill made obligatory?

  1. A.Twenty-fourth Amendment, 1971
  2. B.Twenty-fifth Amendment, 1971
  3. C.Forty-second Amendment, 1976
  4. D.Forty-fourth Amendment, 1978
Show answer

Correct answer: A. Twenty-fourth Amendment, 1971

Explanation

The correct answer is A, Twenty-fourth Amendment, 1971. It was passed in answer to the Golaknath ruling. It amended Article 13 and Article 368 to make clear that Parliament could take away or abridge a Fundamental Right by amendment, and it made the President's assent to such a bill compulsory, so an amendment bill can neither be withheld nor returned for reconsideration.

Option B is wrong because the Twenty-fifth Amendment of 1971 curtailed the right to property and inserted Article 31C. Option C is wrong because the Forty-second Amendment of 1976 added the Fundamental Duties and tried to bar judicial review of amendments through clauses 4 and 5 of Article 368. Option D is wrong because the Forty-fourth Amendment of 1978 reversed several of those changes and made the right to property a legal right under Article 300A. The pairing to hold is Golaknath with the Twenty-fourth Amendment.

Q6.Indian PolityEasy

Which amendment to the Constitution of India is popularly called the mini Constitution?

  1. A.Forty-second Amendment
  2. B.Forty-fourth Amendment
  3. C.Fifty-second Amendment
  4. D.Seventy-third Amendment
Show answer

Correct answer: A. Forty-second Amendment

Explanation

The correct answer is A, Forty-second Amendment. Enacted in 1976 on the recommendations of the Swaran Singh Committee, it changed so many provisions at one stroke that it is called the mini Constitution: it added the Fundamental Duties in Part IVA, inserted the words socialist, secular and integrity in the Preamble, extended the term of the Lok Sabha to six years and moved five subjects, among them education and forests, from the State List to the Concurrent List.

Option B is wrong because the Forty-fourth Amendment of 1978 was the corrective amendment that undid much of this. Option C is wrong because the Fifty-second Amendment of 1985 brought in the anti defection law in the Tenth Schedule. Option D is wrong because the Seventy-third Amendment of 1992 gave constitutional status to panchayats. Only the Forty-second carries the nickname.

Q7.Indian PolityHard

In the Minerva Mills case of 1980, the Supreme Court struck down which clauses of Article 368?

  1. A.Clauses 1 and 2
  2. B.Clauses 2 and 3
  3. C.Clauses 3 and 4
  4. D.Clauses 4 and 5
Show answer

Correct answer: D. Clauses 4 and 5

Explanation

The correct answer is D, clauses 4 and 5. The Forty-second Amendment had added clause 4, saying that no amendment shall be called in question in any court, and clause 5, saying that the amending power of Parliament was unlimited. In Minerva Mills the Court struck down both, holding that judicial review and the limited nature of the amending power are themselves part of the basic structure.

Option A is wrong because clauses 1 and 2 are the original provisions on the amending power and the procedure, and they remain in force. Option B and Option C are wrong because clause 3, which says that Article 13 shall not apply to an amendment, was inserted by the Twenty-fourth Amendment and was not struck down. The neat way to hold this is that the Forty-second Amendment added clauses 4 and 5 and Minerva Mills removed exactly those two.

Q8.Indian PolityMedium

The voting age in India was reduced from twenty-one years to eighteen years by which amendment?

  1. A.Fifty-second Amendment
  2. B.Sixty-first Amendment
  3. C.Seventy-fourth Amendment
  4. D.Eighty-sixth Amendment
Show answer

Correct answer: B. Sixty-first Amendment

Explanation

The correct answer is B, Sixty-first Amendment. Passed in 1989, it amended Article 326 and lowered the voting age for elections to the Lok Sabha and the state legislative assemblies from twenty-one years to eighteen years, which brought a very large number of young voters on to the rolls for the general election that followed.

Option A is wrong because the Fifty-second Amendment of 1985 inserted the Tenth Schedule and the anti defection law. Option C is wrong because the Seventy-fourth Amendment of 1992 dealt with municipalities and added the Twelfth Schedule. Option D is wrong because the Eighty-sixth Amendment of 2002 inserted Article 21A and made free and compulsory education for children of six to fourteen years a Fundamental Right. Remember Article 326 along with the Sixty-first Amendment, because the article is asked as often as the number.

Q9.Indian PolityMedium

The Ninth Schedule was added to the Constitution of India by which amendment?

  1. A.First Amendment, 1951
  2. B.Fourth Amendment, 1955
  3. C.Seventh Amendment, 1956
  4. D.Seventeenth Amendment, 1964
Show answer

Correct answer: A. First Amendment, 1951

Explanation

The correct answer is A, First Amendment, 1951. It inserted Articles 31A and 31B along with the Ninth Schedule, so that land reform and zamindari abolition laws placed in that schedule could not be challenged for violating the Fundamental Rights. The same amendment also added the grounds of public order, friendly relations with foreign states and incitement to an offence as reasonable restrictions on the freedom of speech.

Option B is wrong because the Fourth Amendment of 1955 dealt with compulsory acquisition of property and added laws to the existing schedule. Option C is wrong because the Seventh Amendment of 1956 carried out the reorganisation of states. Option D is wrong because the Seventeenth Amendment of 1964 only added more land reform laws to the Ninth Schedule. The point to carry away is that later amendments filled the Ninth Schedule, but the First Amendment created it.

Q10.Indian PolityEasy

An amendment touching the federal provisions of the Constitution must be ratified by the legislatures of:

  1. A.Not less than one half of the states
  2. B.Not less than two thirds of the states
  3. C.Not less than three fourths of the states
  4. D.All the states
Show answer

Correct answer: A. Not less than one half of the states

Explanation

The correct answer is A, not less than one half of the states. For matters such as the election of the President, the extent of the executive power of the Union and the states, the Supreme Court and the High Courts, the Seventh Schedule, the representation of states in Parliament and Article 368 itself, the bill must first be passed by each House by a special majority and then ratified by the legislatures of at least half the states, each by a simple majority.

Option B is wrong because two thirds is the fraction of members present and voting in Parliament, not of the states, and this mixing of the two fractions is the trap. Option C and Option D are wrong because the Constitution nowhere requires three fourths of the states or unanimity; the makers deliberately avoided the rigidity of such a rule. Note also that no time limit is fixed for the states to ratify.

Q11.Indian PolityMedium

Which amendment provides for the reservation of one third of the seats for women in the Lok Sabha and the state legislative assemblies?

  1. A.One hundred and first Amendment
  2. B.One hundred and third Amendment
  3. C.One hundred and fourth Amendment
  4. D.One hundred and sixth Amendment
Show answer

Correct answer: D. One hundred and sixth Amendment

Explanation

The correct answer is D, One hundred and sixth Amendment. Passed in 2023 and called the Nari Shakti Vandan Adhiniyam, it inserted Articles 330A and 332A to reserve one third of the seats in the Lok Sabha and in the state legislative assemblies, as well as in the Delhi assembly, for women, the reservation to take effect after the delimitation exercise carried out on the basis of the relevant census.

Option A is wrong because the One hundred and first Amendment of 2016 introduced the Goods and Services Tax through Articles 246A, 269A and 279A. Option B is wrong because the One hundred and third Amendment of 2019 provided reservation for the economically weaker sections. Option C is wrong because the One hundred and fourth Amendment of 2020 extended reservation of seats for the Scheduled Castes and Scheduled Tribes in the legislatures and ended the nomination of Anglo Indians. Learn these four numbers together, as examiners set them as one another's distractors.

Q12.Indian PolityAsked in: UPSC Civil Services · 2020Hard

Consider the following statements: 1. The Constitution of India defines its basic structure in terms of federalism, secularism, fundamental rights and democracy. 2. The Constitution of India has a provision for judicial review to safeguard the citizens' liberties and to preserve the ideals on which the Constitution is based. Which of the statements given above is or are correct?

  1. A.1 only
  2. B.2 only
  3. C.Both 1 and 2
  4. D.Neither 1 nor 2
Show answer

Correct answer: D. Neither 1 nor 2

Explanation

The correct answer is D, neither 1 nor 2. Statement 1 is wrong because the Constitution nowhere uses the expression basic structure or defines it. The doctrine is a creation of the Supreme Court in Kesavananda Bharati in 1973, and the courts have added features to it case by case, which is why no closed list exists. Statement 2 is wrong as it stands because the Constitution contains no provision that declares judicial review with such a purpose written into it; the power flows from provisions such as Articles 13, 32, 131 to 136, 226 and 246, and the language about safeguarding liberties and preserving ideals is the language of judgments and commentaries, not of the text.

Option A and Option B are therefore wrong, each accepting one of the two flawed statements, and Option C is wrong because it accepts both. The lesson for statement based questions is to be strict about the words defines and provision: a doctrine developed by the courts is not a definition given by the Constitution.

Frequently Asked Questions

What is the basic structure doctrine?

It is the rule laid down in Kesavananda Bharati in 1973 that Parliament may amend any provision of the Constitution but cannot damage or destroy its essential features, such as the supremacy of the Constitution, the rule of law, judicial review, secularism, federalism, free and fair elections and the independence of the judiciary. The Constitution itself nowhere defines the basic structure; the courts decide case by case what falls within it.

Which majority is needed to amend the Constitution?

Most provisions need a special majority in each House, which means a majority of the total membership of that House and at the same time a majority of not less than two thirds of the members present and voting. Provisions touching the federal structure need that special majority plus ratification by the legislatures of not less than one half of the states. A few provisions, such as those under Articles 4 and 169, need only a simple majority.

Can a Constitution Amendment Bill go to a joint sitting?

No. Article 108, which provides for a joint sitting of the two Houses when they disagree, does not apply to a Constitution Amendment Bill. Each House must pass the bill separately by the required majority, so the Rajya Sabha has a real veto on amendments. This is a favourite one line question in SSC and State examinations.

Why is the Forty-second Amendment called the mini Constitution?

Because it changed so much of the Constitution at once in 1976: it added the Fundamental Duties in Part IVA, put the words socialist, secular and integrity into the Preamble, extended the term of the Lok Sabha to six years, moved five subjects including education and forests from the State List to the Concurrent List, and tried to bar judicial review of amendments. The Forty-fourth Amendment of 1978 undid several of these changes.

Is a law placed in the Ninth Schedule safe from the courts?

Not any longer. The Ninth Schedule was added by the First Amendment in 1951 to protect land reform laws from challenge under the Fundamental Rights. In Waman Rao in 1981 the Court held that laws added after 24 April 1973 can be tested, and in I. R. Coelho in 2007 it held that any such law must still answer the basic structure test, so protection is no longer absolute.

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