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Issues: (i) Whether Entry 34 of List II authorises the State Legislature to regulate or prohibit betting on games of skill, and whether the expression "betting and gambling" is confined to betting on gambling activities; (ii) whether the impugned Tamil Nadu and Karnataka enactments were correctly tested against the settled distinction between games of skill and games of chance, and whether they were arbitrary or disproportionate; (iii) whether the State Legislatures could also sustain the impugned laws under other State List entries, including public order.
Issue (i): Whether Entry 34 of List II authorises the State Legislature to regulate or prohibit betting on games of skill, and whether the expression "betting and gambling" is confined to betting on gambling activities.
Analysis: The expression "betting and gambling" was held to be a composite constitutional phrase that cannot be rewritten as "betting on gambling". The Court reasoned that the words in the Seventh Schedule must receive a broad and liberal construction, and that the earlier decisions in RMDC-I, RMDC-II, and K.R. Lakshmanan did not decide that betting on games of skill lies outside Entry 34. Those cases were distinguished as dealing with different factual settings and with statutory exemptions for games of skill, not with the constitutional power to regulate staking on uncertain outcomes. The Court further held that staking money on the uncertain outcome of a game, even if the underlying game involves skill, is itself betting and therefore falls within Entry 34.
Conclusion: The State Legislature's power under Entry 34 extends to betting on games of skill, and the impugned laws were not beyond legislative competence on that ground.
Issue (ii): Whether the impugned Tamil Nadu and Karnataka enactments were correctly tested against the settled distinction between games of skill and games of chance, and whether they were arbitrary or disproportionate.
Analysis: The Court held that the impugned laws did not unlawfully obliterate the skill-chance distinction merely because they targeted staking on online games. It reasoned that once money is risked on an uncertain outcome, the activity assumes the character of betting and gambling, regardless of whether the underlying game is one of skill. On that basis, the Court rejected the challenge founded on Article 14 and Article 19, and held that the measures were not manifestly arbitrary or disproportionate. The Court also accepted the legislative concern that online money gaming had caused addiction, financial losses, suicides, and wider social harm.
Conclusion: The impugned enactments were not manifestly arbitrary or disproportionate and did not fail on the Article 14 or Article 19 challenge.
Issue (iii): Whether the State Legislatures could also sustain the impugned laws under other State List entries, including public order.
Analysis: The Court held that public order has a wide constitutional amplitude and includes activities that disturb the even tempo of community life, public tranquillity, public health, and social order. It found a proximate nexus between rampant online money gaming and harms such as addiction, debt, and suicides, and concluded that these consequences could justify State action under Entry 1 of List II. The Court treated the legislative measures as supported by empirical material and as aimed at restoring public tranquillity and protecting the public at large.
Conclusion: The impugned laws were also supported by the State's public order power under Entry 1 of List II.
Final Conclusion: The common judgment of the High Courts was set aside, and the State appeals were allowed. The impugned State enactments were upheld as intra vires the Constitution.
Ratio Decidendi: Betting or wagering on the uncertain outcome of a game remains betting and falls within the State's regulatory power under Entry 34 of List II even if the underlying game is one of skill; such legislation may also be sustained where the activity threatens public order and public tranquillity.
Betting on games of skill falls within State power, and online gaming laws were upheld as valid.
Betting or wagering on the uncertain outcome of a game remains "betting and gambling" within Entry 34 of List II, even where the underlying game involves skill, and the phrase is a composite constitutional expression rather than "betting on gambling". The Court held that the Tamil Nadu and Karnataka online gaming laws did not unlawfully destroy the skill-chance distinction, and were not manifestly arbitrary or disproportionate under Articles 14 and 19 because they targeted staking money on uncertain outcomes. It also held that the measures were supported by the State's public order power under Entry 1 of List II. The High Courts' common judgment was set aside and the State enactments were upheld.
Legislative competence over betting on games of skill - Interpretation of betting and gambling - Res extra commercium - Manifest arbitrariness - Public order - Nomen juris Interpretation of betting and gambling - Legislative competence over betting on games of skill - Games of skill played with stakes - Entry 34 of List II is not confined to betting on games of chance, and betting on the uncertain outcome of games of skill also falls within the State Legislature's competence. - HELD THAT: - The Court held that the High Courts erred in reading the expression "betting and gambling" as "betting on gambling". Entries in the Seventh Schedule must receive a broad and liberal construction, and the Constitution does not warrant rewriting the text by confining "betting" to gambling alone. The Constituent Assembly Debates showed that the framers intended the States to have power to regulate and even prohibit betting and gambling, including play of rummy for money. The decisions in State of Bombay v. R.M.D. Chamarbaugwala, R.M.D. Chamarbaugwala v. Union of India and Dr. K.R. Lakshmanan v. State of Tamil Nadu & Anr. were held not to have decided the scope of the word "betting" in Entry 34. Those cases distinguished skill-based competitions from gambling in their own statutory settings, but did not lay down that betting on games of skill is outside Entry 34. The Court held that once money is staked on an uncertain outcome with the hope of gain, the activity answers the description of betting and gambling irrespective of whether the underlying game is one of skill or chance. The protection available to games of skill cannot be extended to betting on such games unless the statute itself creates such an exception. [Paras 288, 289, 290, 376, 377] The State legislatures were competent under Entry 34 of List II to regulate and prohibit betting and wagering on online games even where the underlying game involves skill. Manifest arbitrariness - Res extra commercium - Proportionality - The impugned Tamil Nadu and Karnataka enactments are neither manifestly arbitrary nor disproportionate. - HELD THAT: - The Court held that, once staking on uncertain outcomes is treated as betting and gambling, the distinction between games of skill and games of chance ceases to be constitutionally decisive for testing the legislation under Article 14. The classification adopted by the States had a rational nexus with the object of curbing addiction, monetary loss and the social consequences of online money gaming. The Court further held that activities falling within betting and gambling are res extra commercium; therefore, no fundamental right can be claimed to carry on such activity, and the occasion for a proportionality inquiry does not arise. The legislations were held to have merely brought all forms of betting and gambling within their scope and not to suffer from any so-called sweeping or artificial definition. The Court also accepted that the Tamil Nadu legislation was supported by material including the Justice Chandru Committee report, surveys and other empirical inputs regarding addiction, mental harm, financial distress and suicides linked to online gaming. [Paras 322, 323, 324, 376, 377] The challenge based on arbitrariness, Article 19 protection and proportionality failed. Nomen juris - Statutory definition of gaming - The expression "gaming" has not acquired the status of a nomen juris confined to games of chance, and the Legislature may define it for the statutory purpose. - HELD THAT: - Rejecting the view accepted by the High Courts, the Court held that the Constitution uses the expression "betting and gambling" in Entry 34 and not "gaming". The term "gaming" is a statutory expression whose content varies across enactments and States, and its meaning is therefore fluid rather than fixed. It cannot be treated as a settled legal term restricted to games of chance alone. For the same reason, the inclusion of betting on games of skill within the statutory definition of gaming was held not to be the creation of an impermissible legal fiction or a mere Midas touch. The Legislature was entitled to frame the definition in a manner suited to the object of curbing online betting and gambling. [Paras 328, 329, 331, 376, 377] The plea that gaming is a nomen juris excluding games of skill was rejected. Public order - Legislative competence - Online money gaming - Apart from Entry 34, the impugned enactments were also supportable on the State's power over public order. - HELD THAT: - The Court held that "public order" in Entry 1 of List II has wide connotation and includes preservation of public tranquility, public safety, public health-related harm, and social or economic disorder having community-wide impact. Applying those principles, the Court found that online money gaming, through its normalization of betting, large-scale public participation, addiction, financial losses, depression and suicides, affects the community at large and disturbs the even tempo of life. The Statements of Objects and Reasons and the material relied upon by the States showed a proximate nexus between the legislation and the mischief sought to be remedied. The online medium had converted mobile phones into virtual gaming spaces, making the problem pervasive and accessible to the public at large. The Court therefore held that the States could invoke public order, in addition to Entry 34, to sustain the challenged enactments. [Paras 373, 374, 375, 376, 377] The impugned legislations were also within the States' competence under Entry 1 of List II on the ground of public order. Final Conclusion: The Supreme Court allowed the appeals, set aside the Madras and Karnataka High Court judgments, and upheld Part II of the 2021 Tamil Nadu Amendment Act, the challenged provisions and Schedule of the Tamil Nadu Online Gambling Act 2022/23, and the challenged provisions of the 2021 Karnataka Amendment Act as intra vires. It held that betting on games of skill is within State competence and that the impugned enactments are not arbitrary or disproportionate.