The Generality vs. Enumeration Principle: A Key to Interpreting Delegated Rule-Making Power: Validity of Rule 9(3) of the Chartered Accountants' Rules, 2007

Deciphering Legal Judgments: A Comprehensive Analysis of Case Law

Reported as:

2024 (2) TMI 493 - Supreme Court

Introduction

This article provides an in-depth analysis of a significant judgment delivered by the Supreme Court of India. The judgment revolves around the validity of Rule 9(3) of the Chartered Accountants' (Procedure of Investigation of Professional and Other Misconduct and Conduct of Cases) Rules, 2007 (hereinafter referred to as "Rules, 2007") framed under the Chartered Accountants Act, 1949 (hereinafter referred to as "the Act"). The central issue is whether Rule 9(3) exceeds the scope of the rule-making power conferred by the parent Act, thereby rendering it ultra vires.

Arguments Presented

The Appellant challenged the validity of Rule 9(3) on the ground that it exceeds the limits of authority conferred by the enabling Act, i.e., the Chartered Accountants Act, 1949. Specifically, the Appellant contended that Rule 9(3) goes beyond the provisions of Section 21A(4) of the Act, which outlines the procedure to be followed when the Board of Discipline disagrees with the opinion of the Director (Discipline).

On the other hand, the Respondent argued that Rule 9(3) is well within the scope of the general delegation of power u/s 29A(1) of the Act, which authorizes the Central Government to make rules for carrying out the purposes of the Act.

Discussions and Findings of the Court

The Court extensively discussed the relevant provisions of the Chartered Accountants Act, 1949, and the Rules, 2007, to determine the validity of Rule 9(3).

Scope of Rule-Making Power

The Court observed that the rule-making power u/s 29A follows a standardized pattern. Section 29A(1) confers a broad power to make rules "to carry out the provisions of this Act," while Section 29A(2) enumerates specific matters for which rules may be made. However, the Court emphasized that the enumerated heads in Section 29A(2) cannot be construed as exhaustive since the legislature has used the phrase "without prejudice to the generality of the foregoing power."

Generality vs. Enumeration Principle

The Court extensively discussed the "generality vs. enumeration" principle, which states that where a statute confers particular powers without prejudice to the generality of a general power already conferred, the particular powers are only illustrative of the general power and do not restrict it. Even if the impugned rule does not fall within the enumerated heads, it must be examined whether it can be upheld by reference to the scope of the general power.

Object and Purpose of the Act

The Court examined the object and purpose of the chapter on "Misconduct" in the Chartered Accountants Act, 1949. It noted that the chapter aims to maintain ethical standards, prevent actions compromising public interests, ensure accountability among chartered accountants, and preserve the profession's reputation. The Court found that Rule 9(3) is in sync with these objectives, as it ensures that genuine complaints of professional misconduct are not wrongly dismissed at the threshold.

Analysis and Decision by the Court

The Court distilled and summarized several legal principles relevant to adjudicating cases where subordinate legislation is challenged on the ground of being ultra vires the parent Act. These principles include the doctrine of ultra vires, the generality vs. enumeration principle, and the scope of delegated rule-making power.

Applying these principles to the present case, the Court concluded that even if Rule 9(3) cannot be saved u/s 29A(2)(c), it falls within the scope of the general delegation of power u/s 29A(1) as it directly relates to furthering the purposes of the Act. Consequently, the Court dismissed the appeal and upheld the validity of Rule 9(3).

Doctrine or Principle Discussed

The Court extensively discussed the "generality vs. enumeration" principle, which is a crucial doctrine in determining the scope of delegated rule-making power. This principle states that where a statute confers particular powers without prejudice to the generality of a general power already conferred, the particular powers are only illustrative of the general power and do not restrict it.

Comprehensive Summary of the Judgment

The Supreme Court, in this judgment, upheld the validity of Rule 9(3) of the Chartered Accountants' (Procedure of Investigation of Professional and Other Misconduct and Conduct of Cases) Rules, 2007. The Court extensively discussed the scope of delegated rule-making power and the "generality vs. enumeration" principle. It concluded that even if Rule 9(3) cannot be directly related to the enumerated heads u/s 29A(2) of the Chartered Accountants Act, 1949, it falls within the general delegation of power u/s 29A(1) as it directly relates to furthering the purposes of the Act in ensuring accountability and maintaining ethical standards in the chartered accountancy profession.

Full Text:

2024 (2) TMI 493 - Supreme Court