REPORTABLE

IN THE SUPREME COURT OF INDIA

CIVIL ORIGINAL JURISDICTION

WRIT PETITION (CIVIL) NO.855 OF 2016

SHYAM NARAYAN CHOUKSEY … Petitioner(s)

Versus

UNION OF INDIA & OTHERS … Respondent(s)

J U D G M E N T

Dipak Misra, CJI.

The petitioner, a public spirited person, has approached this

Court under Article 32 of the Constitution of India for issue of a

writ of mandamus or any other appropriate writ, order or direction

commanding the respondents to take appropriate steps for

inculcating in the public a proper sense for paying due respect to

the National Anthem; to issue a writ, order or direction as to what

is required to be done and not to be done when the National

Anthem is being played or sung; to specify what will constitute

disrespect and abuse of the National Anthem; and to restrain the

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use of the National Anthem for any commercial exploitation or to

gain financial advantage in any manner.

2. Apart from the aforesaid prayers, there are many other prayers

and one such prayer includes that no one should print the National

Anthem on any undesirable object or display it in a manner and at

such places which may be disgraceful and may tantamount to

showing disrespect to the National Anthem.

3. After issue of notice, learned Attorney General for India

entered appearance. On 30

th November, 2016, taking note of the

assertions made in the petition, this Court had passed an interim

order, which reads thus:-

―Having heard the learned counsel for the parties

and awaiting the reply from the Union of India, as

an interim measure, it is directed that the following

directions shall be scrupulously followed:-

(a) There shall be no commercial exploitation to give

financial advantage or any kind of benefit. To

elaborate, the National Anthem sh ould not be

utilized by which the person involved with it either

directly or indirectly shall have any commercial

benefit or any other benefit.

(b) There shall not be dramatization of the National

Anthem and it should not be included as a part of

any variety show. It is because when the National

Anthem is sung or played it is imperative on the part

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of every one present to show due respect and

honour. To think of a dramatized exhibition of the

National Anthem is absolutely inconceivable.

(c) National Anthem or a part of it shall not be

printed on any object and also never be displayed in

such a manner at such places which 3 may be

disgraceful to its status and tantamount to

disrespect. It is because when the National Anthem

is sung, the concept of protocol associated with it

has its inherent roots in National identity, National

integrity and Constitutional Patriotism.

(d) All the cinema halls in India shall play the

National Anthem before the feature film starts and

all present in the hall are obliged to stand up to

show respect to the National Anthem.

(e) Prior to the National Anthem is played or sung in

the cinema hall on the screen, the entry and exit

doors shall remain closed so that no one can create

any kind of disturbance which will amount to

disrespect to the National Anthem. After the

National Anthem is played or sung, the doors can be

opened.

(f) When the National Anthem shall be played in the

Cinema Halls, it shall be with the National Flag on

the screen.

(g) The abridge version of the National Anthem made

by any one for whatever reason shall not be played

or displayed.‖

4. After issuing the directions, this Court noted the submissions

of the learned Attorney General which were to the following effect:-

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―We have so directed as Mr. Mukul Rohtagi, learned

Attorney General for India submits with all humility

at his command and recommend that National

Anthem has to be respected. The di rections are

issued, for love and respect for the motherland is

reflected when one shows respect to the National 4

Anthem as well as to the National Flag. That apart,

it would instill the feeling within one, a sense

committed patriotism and nationalism.‖

5. Thereafter, as the factual matrix would unfurl, two

applications were filed seeking impleadment and recall of the

interim order. They were taken up on 9

th December, 2016, and on

that day, the prayer for impleadment was allowed, but as far as the

application for recall was concerned, the Court passed the following

order:-

―As far as the recall of the order is concerned, the

same has to be heard on merits when the matter is

finally debated upon. Be it noted, Mr. Dinesh,

learned counsel for the applicant at the time of

mentioning had submitted that there has to be some

kind of exemption for the physically challenged

persons or physically handicapped persons. Mr.

Siddharth Luthra, learned senior counsel who was

present in Court has referred to the Persons with

Disabilities (Equal Opportunities, Protection of

Rights and Full Participation) Act, 1995.

Mr. Rohatgi, learned Attorney General for

India submitted that how the physically challenged

or physically handicapped persons shall show

respect to the National Anthem, the Central

Government will issue guidelines within ten days

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hence. As the guidelines are going to be issued, we

clarify, if a physically challenged person or physically

handicapped person goes to the Cinema hall to

watch a film, he need not stand up, if he is incapable

to stand, but must show such conduct which is

commensurate with respect for the National Anthem.

When we say physically challenged or physically 3

handicapped persons, it means persons with

disability as defined under Sections 2(i) and 2(t) of

the Persons with Disabilities (Equal Opportunities,

Protection of Rights and Full Participation) Act,

1995. Another aspect needs to be cleared. When we

said that the doors shall be closed, we did not mean

that the doors shall be bolted as mentioned in the

case of Municipal Corporation of Delhi, Delhi vs.

Uphaar Tragedy Victims Association and Ors. [(2011)

14 SCC 481] but only to regulate the ingress and

egress during the period while the National Anthem

is played.‖

6. On the next date of hearing i.e. 14

th February, 2017, certain

interlocutory applications were filed, which related to the difficulties

faced by the disabled persons. Mr. Sidharth Luthra, learned senior

counsel, who was appointed as the friend of the Court, had

highlighted certain aspects and taking note of the same, the

following order was passed:-

―Mr. Siddharth Luthra, learned amicus curiae,

submitted that it may be clarified that the people are

not expected to stand when the National Anthem is

sung or played as a part of the storyline in the

feature film or as a part of the newsreel or the

documentary. Mr. Rohatgi, learned Attorney General

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accepted the said suggestion.

In view of the aforesaid, it is clarified that when

the National Anthem is sung or played in the

storyline of a feature film or par of the newsreel or

documentary, apart from what has been stated in

the order dated 30.11.2016, the audience need not

stand.

At this juncture, we may state that the

Parliament has brought a new legislation called 'The

Rights of Persons with Disabilities Act, 2016.

Section 102 repeals 'The Persons with Disabilities

(Equal Opportunity Protection of Rights and Full

Participation) Act, 1995. This Court on 9.12.2016

has modified the earlier order regard being had to

the handicapped persons keeping in view the 1995

Act. On a query being made, Mr. Mukul Rohatgi,

learned Attorney General for India submitted that

the Union of India shall issue an appropriate

notification/guidelines in view of the language

employed in the Rights of Persons with Disabilities

Act, 2016. The said notification/guidelines may be

issued within a week hence.

Mr. Subhash Chandran, learned counsel

submits that he may be permitted to file an

application for intervention on behalf of the National

Platform for the Rights of the Disabled. He is at

liberty to file the application.‖

7. On 18

th April, 2017, dealing with I.A. No.15 of 2017, which

also related to disabled persons, certain modifications were made.

The said order is as follows:-

―This is an application filed by the NPRD to direct

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the respondent No.1 to exempt certain categories of

disabled persons from the purview of the order of

this Court dated 30th November, 2016 and 9th

December, 2016. The categories of persons

mentioned are:-

(i) Wheel chair users – can be cerebral palsy,

Parkinsons, Multiple sclerosis, Muscular dystrophy

or other conditions

(ii) Those with autism

(iii) Those with cerebral palsy

(iv) Intellectual disabilities

(v) Mental illness

(vi) Deaf blind

(vii) Multiple disabilities

(viii) Parkinsons, Multiple sclerosis

(ix) Leprosy cured

(x) Muscular dystrophy

Having heard learned counsel for the

parties, we are inclined to modify the orders and

direct that the persons who are wheel chair users,

those with autism, persons suffering from cerebral

palsy, multiple disabilities, parkinsons, multiple

sclerosis, leprosy cured, muscular dystrophy and

deaf and blind be treated not to be within the ambit

of the orders passed by this Court.

As far as the other categories, which we

have not referred to mentioned in the application,

are concerned, the same may be considered by the

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Union of India.‖

8. On the previous occasion i.e. 23

rd October, 2017, having heard

learned counsel for the parties and the learned Attorney General for

India, the following order came to be passed:-

―The submission of the learned Attorney General is

that because of the vast diversity in the country

based on religion, race, caste and even region, it

becomes necessary to have uniformity which should

be cultivated by playing the National Anthem so that

when people come out from the cinema halls,

instilling the belief that they are all Indians. Be that

as it may. In this context, he has referred to Article

51A(a) of the Constitution of India.

Having heard learned counsel for the

parties for some time, we think it appropriate that

the Central WP(C) 855/16 4 Government should

take a call in this regard and, if necessary, as

advised, may bring out the requisite notification or

circular or rules. When we say 'take a call', needless

to say, the discretion rests with the Central

Government. The discretion has to be exercised

without being influenced by our interim order. We

may further emphasize that the discretion may be

utilized to regulate in an inclusive manner or as the

Central Government feels fit.‖

9. In pursuance of our earlier order, an affidavit has been filed by

the Union of India. It is submitted by Mr. K.K. Venugopal, learned

Attorney General that the Central Government has constituted a

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Committee by a Notification/Order dated 5

th December, 2017. We

shall refer to the same at a later stage.

10. Mr. Abhinav Shrivastava, learned counsel appearing for the

petitioner has raised the following contentions:-

(a) The Prevention of Insults to National Honour Act, 1971 (for

short, ‗the 1971 Act‘) vide Section 3 only deals with prevention

of singing/playing of National Anthem, etc., but it does not

deal fully as to how the respect is to be shown and, therefore,

appropriate measures should be prescribed by law in that

regard.

(b) Article 51A(a) of the Constitution which provides that every

citizen of India is to abide by the Constitution and respect its

ideals and institutions, the National Flag and the National

Anthem, warrants that every citizen or person in this country

has to show respect to the National Anthem wherever it is

played.

(c) The Preamble of the Constitution uses the word ―unity and

integrity of the Nation‖ and the said words are required to be

interpreted on a broad canvass so that honour and respect

10

due to the National Anthem are maintained.

(d) The order passed by this Court sub-serves the cause of

integrity of the Nation and, therefore, need not be recalled and

should be made absolute.

(e) The instructions issued under the heading ―Orders Relating to

the National Anthem of India‖ are executive in nature as they

relate to various aspects and are not binding and, therefore,

there has to be an appropriate law in the field and in the

absence of law, this Court may issue directions till the law is

brought covering the said aspects.

11. Mr. K.K. Venugopal, learned Attorney General, referring to the

affidavit and the Notification/Order would contend that the

Committee constituted by the Notification shall look into every

aspect including the amendment to the 1971 Act and formulation of

further executive instructions and till then the mandatory order

passed by this Court for playing/singing of the National Anthem

before starting of feature films in cinema halls may be modified by

making it directory. The suggestion given by him is that the word

―shall‖ used in the order be substituted by ―may‖.

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12. Mr. Sidharth Luthra, learned Amicus Curiae, has submitted

that Article 51A of the Constitution has been brought when the

1971 Act was in force and, therefore, it has to be understood in the

said perspective. He has also submitted that Section 2 of the 1971

Act was amended vide Act 31 of 2003 with effect from 8

th May,

2003, as a consequence of which, respect to the National Anthem is

a part of the statutory provision. To buttress the said submission,

he has emphasized on the language employed in Section 2 which

uses the words ―or the Constitution of India or any part thereof‖.

To have a sense of completeness, we think it appropriate to

reproduce Section 2 of the 1971 Act, which is as under:-

―2. Insult to Indian National Flag and Constitution of

India.- Whoever in any public place or in any other

place within public view burns, mutilates, defaces,

defiles, disfigures, destroys, tramples upon or

*otherwise shows disrespect to or brings into

contempt (whether by words, either s poken or

written, or by acts) the Indian National Flag or the

Constitution of India or any part thereof, shall be

punished with imprisonment for a term which may

extend to three years, or with fine, or with both.

Explanation 1. – Comments expressing

disapprobation or criticism of the Constitution or of

the Indian National Flag or of any measures of the

Government with a view to obtain an amendment of

the Constitution of India or an alteration of the

Indian National Flag by lawful means do not

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constitute an offence under this section.

Explanation 2.– The expression, ―Indian National

Flag‖ includes any picture, painting, drawing or

photograph, or other visible representation of the

Indian National Flag, or of any part or parts thereof,

made of any substance or represented on any

substance.

Explanation 3.– The expression ―public place‖

means any place intended for use by, or accessible

to, the public and includes any public conveyance.

Explanation 4.- The disrespect to the Indian

National flag means and includes—

(a) a gross affront or indignity offered to the Indian

National Flag; or

(b) dipping the Indian National Flag in salute to any

person or thing; or

(c) flying the Indian National Flag at half-mast

except on occasions on which the Flag is flown at

half-mast on public buildings in accordance with

the instructions issued by the Government; or

(d) using the Indian National Flag as a drapery in

any form whatsoever except in state funerals or

armed forces or other para-military forces funerals;

or

(e) using the Indian National Flag:-

(i) as a portion of costume, uniform or accessory of

any description which is worn below the waist of any

person; or

(ii) by embroidering or printing it on cushions,

handkerchiefs, napkins, undergarments or any

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dress material; or

(f) putting any kind of inscription upon the Indian

National Flag; or

(g) using the Indian National Flag as a receptacle for

receiving, delivering or carrying anything except

flower petals before the Indian National Flag is

unfurled as part of celebrations on special occasions

including the Republic Day or the Independence

Day; or

(h) using the Indian National Flag as covering for a

statue or a monument or a speaker‘s desk or a

speaker‘s platform; or

(i) allowing the Indian National Flag to touch the

ground or the floor or trail in water intentionally; or

(j) draping the Indian National Flag over the hood,

top, and sides or back or on a vehicle, train, boat or

an aircraft or any other similar object; or

(k) using the Indian National Flag as a covering for a

building; or

(l) intentionally displaying the Indian National Flag

with the ―saffron‖ down.‖

13. It is his further submission that once the words ―or any part

thereof‖ have been used in the 1971 Act, the same is bound to be

read in consonance with Article 51A(a) of the Constitution and

hence, it presently gets ingrained as a statutory command.

14. Dr. Rajeev Dhawan, learned senior counsel, who was

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permitted to intervene in-person, has supported the stand of the

Union of India so far as the modification of the interim order is

concerned.

15. Though Mr. Sajan Poovayya, learned senior counsel, has filed

a separate writ petition relating to some other aspect, he submitted

that the word ―secular‖ that finds place in the Preamble is meant

for integration of the diverse communities existing in India and the

said principle has been recognized in the context of the Flag Code

in the Union of India vs. Naveen Jindal and Another

1. He has

drawn our attention to paragraph 27 of the judgment which we

think it seemly to reproduce:

―Then the question arises, which view is to be

accepted. National Anthem, National Flag and

National Song are secular symbols of the

nationhood. They represent the supreme collective

expression of commitment and loyalty to the nation

as well as patriotism for the Country. They are

necessary adjuncts of sovereignty being symbols

and actions associated therewith.‖

16. Emphasizing on the aforesaid passage, he would contend that

both the National Anthem and the National Flag and the National

Song being secular symbols representing the nationhood command

1

(2004) 2 SCC 510

15

desired respect. He has also drawn our attention to the statement

made by the President of the Constituent Assembly. It is as under:-

―Statement

Mr. President: There is one matter which has been

pending for discussion, namely, the question of the

National Anthem. At one time, it was thought that

the mater might be brought up before the House

and a decision taken by the House by way of a

resolution. But it has been felt that, instead of

taking a formal decision by means of resolution, it is

better if I make a statement with regard to the

National Anthem. Accordingly I make this

statement.

The composition consisting of the words

and music known as Jana Gana Mana is the

National Anthem of India, subject to such

alterations in the words as the Government may

authorise as occasion arises; and the song Vande

Mataram, which has played a historic part in the

struggle for Indian freedom, shall be honoured

equally with Jana Gana Mana and shall have equal

status with it. I hope this will satisfy the Members.‖

17. We may hasten to add that we have reproduced the same to

show the sanctity of the National Anthem and the respect it has to

be given.

18. Mr. C.U. Singh, learned senior counsel appearing for the

intervenor, which has filed an application for recalling the interim

order contends that in the absence of any law, this Court should

16

not have made the playing of National Anthem in cinema halls

mandatory.

19. At this juncture, Mr. P.V. Dinesh, learned counsel assisting

Mr. C.U. Singh, learned senior counsel would submit that if this

Court thinks of continuing the interim order, it may at least modify

the direction that whenever there is a film festival and more than

five to six films are exhibited in a day, the audience should be

permitted to stand only at the commencement of the first feature

film.

20. Mr. V.K. Biju, learned counsel who has intervened in the writ

petition has submitted that though the Committee has been

constituted to look into the matter from various spectrums, the

interim order should be allowed to continue.

21. Ms. Nanita Sharma, learned counsel, who is appearing for the

respondent No.4 because of the application for intervention having

been allowed, submitted that the said organization has submitted

representations to the Government and they need to be considered

as they are pending since 2014.

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22. Mr. Sanjeev Bhatnagar, who has filed an application for

intervention, appearing in-person has submitted that there can be

no doubt that the National Anthem and the National Flag are to be

respected and every citizen is obliged to show respect, but the

cinema halls may not be the appropriate place.

23. To appreciate the submissions advanced at the Bar, it is

necessary to refer to Section 3 of the 1971 Act. It reads as under:-

―3. Prevention of singing of National Anthem, etc..-

Whoever intentionally prevents the singing of the

Indian National Anthem or causes disturbances to

any assembly engaged in such singing shall be

punished with imprisonment for a term, which may

extend to three years, or with fine, or with both.‖

24. On a perusal of the said provision, it is clear as day that no

one can intentionally prevent the singing of the National Anthem or

cause any disturbance to an assembly engaged in such singing. It

is a penal provision. The Orders relating to the National Anthem

deal with playing of the anthem, mass singing of the anthem,

playing of foreign anthems and general provisions. Clause III(4) of

the orders reads as follows:-

―III(4). It is not possible to give an exhaustive list

of occasions on which the singing (as distinct from

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playing) of the Anthem can be permitted. But there

is no objection to the singing of the Anthem

accompanied by mass singing so long as it is done

with due respect as a salutation to the motherland

and proper decorum is maintained.‖

25. On a careful reading of the above provision, it is clear that the

said Order states that it is not possible to give an exhaustive list of

the occasions. It further lays down that there is no objection to the

singing of the National Anthem accompanied by mass singing so

long as it is done with due respect as a salutation to the

motherland and maintenance of the proper decorum. Thus, three

aspects are obvious: First the National Anthem is not only to be

respected, but it is a respect as a salutation to the motherland;

second, the list of occasions cannot be exhaustively stated; and,

third, proper decorum has to be maintained when the N ational

Anthem is played or sung.

26. At this stage, we may refer to the Order/Notification dated 5

th

December, 2017. It is as follows:-

―ORDER

Subject: Constitution of an Inter -Ministerial

Committee on playing/singing of the National

Anthem.

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It has been decided to constitute an

Inter-Ministerial Committee under the

Chairmanship of Additional Secretary (Border

Management), Ministry of Home Affairs, with

representatives (not below the rank of Joint

Secretary) from the following

Ministries/Departments to give recommendations

regarding regulation of playing/singing of National

Anthem and to suggest changes in the Prevention

to Insults to National Honour Act, 1971 or in the

Orders Relating to the National Anthem of India.

Sl. No.

Ministry/Department

1 Additional Secretary (BM),

MHA

Chairman

2 Ministry of Defence Member

3 Ministry of External Affairs Member

4 Ministry of Culture Member

5 Ministry of Women and Child

Development

Member

6 Ministry of Parliamentary

Affairs

Member

7 Ministry of Information &

Broadcasting

Member

8 Ministry of Minority Affairs Member

9 Department of Legal Affairs Member

10 Department of School

Education and Literacy

Member

11 Department of Empowerment

of Persons with Disability

Member

12 Joint Secretary (Admn.), MHA Convenor

2. The Committee will submit its

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recommendations in six months.

3. This issues with the approval of the Competent

Authority.‖

27. It is perceptible from the said order, that the inter-Ministerial

Committee has been given the responsibility to make

recommendations for regulating the playing/singing of the National

Anthem and to suggest changes in the 1971 Act or in the Orders

relating to the National Anthem of India.

28. We may presently travel to the past. This Court in Bijoe

Emmanuel and Others vs. State of Kerala and Others

2 (in

paragraphs 9 and 10) has also emphasized on respect to the

National Anthem. We may hasten to add that it sustained the right

of the petitioner therein, but yet observed that a person who stands

up respectfully when the National Anthem is sung, is showing

proper respect. Thus, the stress is on respect when the National

Anthem is sung or played.

29. We may at this stage reproduce the Statement of Objects and

Reasons of the 1971 Act, as the same has been stressed by Mr.

2

AIR 1987 SC 748

21

Abhinav Srivastava, learned counsel for the petitioner. It reads as

under:-

―STATEMENT OF OBJECTS AND REASONS

Cases involving deliberate disrespect to

National Flag, the National Anthem and the

Constitution have come to the notice in the recent

past. Some of these incidents were discussed in

both the Houses of Parliament and members

expressed great anxiety about the disrespect shown

to the national symbols. Government were urged to

prevent the recurrence of such incidents.

Disrespect to the National Flag and the Constitution

or the National Anthem is not punishable under the

existing law. Public acts of insults to these symbols

of sovereignty and the integrity of the nation must

be prevented. Hence the Bill. The scope of the law

is restricted to overt acts of insult to and attack on,

the national symbols by burning, trampling defiling

or mutilating in public. It is not intended to prohibit

honest and bona fide criticism of the symbols, and

express provisions to this effect have been made in

the Bill.‖

30. When we consider the perspectives put forth before us

pronounced in their own way, we have no shadow of doubt that one

is compelled to show respect whenever and wherever the National

Anthem is played. It is the elan vital of the Nation and fundamental

grammar of belonging to a nation state. However, the prescription

of the place or occasion has to be made by the executive keeping in

view the concept of fundamental duties provided under the

22

Constitution and the law.

31. In view of the aforesaid, we think it appropriate that the

Committee should comprehensively look into all the aspects. Mr.

K.K. Venugopal, learned Attorney General for India has submitted

in the course of argument that the petitioner can give suggestions

by way of representation to the Committee. Mr. V.K. Biju and Ms.

Nanita Sharma, learned counsel and Mr. Sanjeev Bhatnagar, the

applicant in-person can also give suggestion in this regard. When

we say suggestions, we mean that suggestions shall only relate to

the National Anthem and nothing else.

32. Having said that, the issue remains for continuance of the

interim order or modification of the same. As submitted by Mr.

Venugopal, learned Attorney General, the playing of the National

Anthem in the cinema halls on the screen may not be made

mandatory and the word ―shall‖ may be substituted with ―may‖

until a final decision is taken by the Committee and, thereafter, by

the Central Government. Needless to emphasize, the discretion

vests with the Central Government and they shall take a decision

uninfluenced by the interim order as clarified in our order dated

23

rd October, 2017.

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33. In view of the aforesaid, we do not intend to keep the writ

petition pending and dispose of the same with the following

directions:-

(i) The Committee appointed by the Union government shall

submit its recommendations to the competent authority in

terms of the Notification dated 5

th December, 2017, for follow

up action.

(ii) The order passed on 30

th November, 2016, is modified to the

extent that playing of the National Anthem prior to the

screening of feature films in cinema halls is not mandatory,

but optional or directory.

(iii) Since the Committee constituted by the Union government is

looking into all aspects of the matter, it shall make its

recommendations uninfluenced by the interim directions of

this Court, as clarified in our order dated 23

rd October,

2017. Similarly, the competent authority shall in taking its

decision(s) not be constrained or influenced by any of the

interim directions.

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(iv) Citizens or persons are bound to show respect as required

under executive orders relating to the National Anthem of

India and the prevailing law, whenever it is played or sung on

specified occasions.

(v) The exemption granted to disabled persons shall remain in

force till the final decision of the competent authority with

regard to each occasion whenever the National Anthem is

played or sung.

34. The writ petition is, accordingly, disposed of. There shall be

no order as to costs.

..............................CJI.

[Dipak Misra]

...................................J.

[A.M. Khanwilkar]

...................................J.

[Dr. D.Y. Chandrachud]

New Delhi

January 09, 2018.