Legality of a Hisba Bill to Introduce an Islamic Ombudsman in the North-Western-Frontier Province
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413 Pakistan: Legality of a Hisba Bill to introduce an Islamic Ombudsman in the North-Western-Frontier Province Makhdoom Ali Khan* Every Muslim, exhorts the Qur’an, should command good and forbid evil. One of the avowed objectives for the creation of Pakistan was to enable Muslims to order their lives in accordance with the teachings of Islam. Almost immediately after independence, therefore, efforts were made to implement this religious injunction through legislation. The endeavour did not succeed. The position remained unchanged until the government of the religious parties alliance (MMA) in the North West Frontier Province passed the Hisba Bill. The Governor had no authority to refuse assent. Having serious reservations, in the matter, he wrote to the Prime Minister requesting that the President be advised to seek the opinion of the Supreme Court on the constitutionality of the measure. A reference seeking the opinion of the Court was made. The Supreme Court observed that the authority conferred on the Ombudsman to check bureaucratic excesses was not unconstitutional. With regard to the powers of the Ombudsman to prosecute or punish citizens for non-performance of religious obligations or for the defiance of his orders, the Court declared that these did interfere with the private life, personal thoughts and individual beliefs of the citizens. These were, therefore, unconstitutional. Until now the courts in Pakistan have been excessively deferential in their examination of Islamic laws. The Hisba judgment is indeed important for its discussion of the various aspects of life and law in an Islamic State. Its greater significance lies in the fact that for the first time in the history of Pakistan, the Supreme Court has declared that legislative authorities will not be allowed to trump individual freedoms and transgress constitutional limits by the expedient use of an Islamic label. * Senior Advocate of the Supreme Court of Pakistan and the Attorney-General for Pakistan since September 2001. 414 Selected Cases Please note that the following text of the ‘Hisba’ judgment of the Supreme Court of Pakistan has been edited in order to make it more readable. The original, unedited, text of the judgement can be found on the website of the Supreme Court of Pakistan at http:// www.scp.com.pk/sub_links/pr/hasba.htm In the Supreme Court of Pakistan (Advisory Jurisdiction) Present Mr.Justice Iftikhar Muhammad Chaudhry, C.J. Mr.Justice Javed Iqbal Mr.Justice Abdul Hameed Dogar Mr.Justice Sardar Muhammad Raza Khan Mr.Justice Muhammad Nawaz Abbasi Mr.Justice Faqir Muhammad Khokhar Mr.Justice Mian Shakirullah Jan Mr.Justice M. Javed Buttar Mr.Justice Saiyed Saeed Ashhad Reference No. 2 of 2005 Reference by the President of Pakistan under Article 186 of the Constitution of the Islamic Republic of Pakistan, 1973 OPINION Iftikhar Muhammad Chaudhry, C.J.: The President of Pakistan has referred the following questions of law for opinion of this Court under Article 186 of the Constitution of the Islamic Republic of Pakistan, 1973 (hereinafter referred to as “the Constitution”): (1) Whether the Hisba Bill or any of its provisions would be constitutionally invalid if enacted? (2) Whether the Hisba Bill or any of its provisions, would, if enacted; be violative of the fundamental rights guaranteed in Part-II, Chapter 1 of the Constitution, including but not limited to Articles 9, 14, 16 to 20, 22 and 25 thereof? (3) Whether the Hisba Bill or any of its provisions would, if enacted, be violative of Articles 2A, 4, 203G, 212, 229 and 230 of the Constitution? (4) Whether the enactment of the Hisba Bill would encroach on an occupied field, violative of the Constitution by creating a parallel judicial system, undermine judicial independence and deny citizens their right of access to justice? (5) Whether the enactment of the Hisba Bill would violate the principle of separation of powers enshrined in the Constitution? (6) Whether the Hisba Bill, and in particular sections 10 and 23 thereof, is unconstitutionally overbroad and vague and suffers from excessive delegation? (7) If the answer to any one or more of the above questions is in the affirmative, whether the Governor, NWFP is obliged to sign into law the Hisba Bill passed by the NWFP Assembly?.