ALL SAINTS HIGH SCHOOL, HYDERABAD ETC. ETC. versus GOVERNMENT OF ANDHRA PRADESH & ORS. ETC.

924

A

c

D

E

F

G

ALL SAINTS HIGH SCHOOL, HYDERABAD ETC. ETC. v. GOVERNMENT OF ANDHRA PRADESH & ORS. ETC. February 4, 1980 [Y. V. CHANDRACHUD, C.J., S. MURTAZA fAZAL ALI AND P. s. KAlLASAM, JJ.] Andhra Pradesh Recognised Private Educational Institutions Control Act if violate constitutional

1975-Sections 3 to 1-Validity of-Provisions guarantee in Art. 30(1).

Constitution of India 1950-Article 30(1)-Andhra Pradesh Recognised Private Educational Institutions Control Act, 1915-lf offends against Art. 30(1).

the

The purported object of the Andhra Pradesh Recognised Private Educa tional Institutions Control Act 1975 was to regulate service conditions of teachers in private educational institutions and for ensuring the security of service of the teachers. Section 3 (I) of the Act provides : "Subject to any rule that may be made in this behalf, no teacher employed in any private educa· tional institution shall be dismissed, removed or reduced in rank nor shall his appointment be otherwise terminated except with the prior approval of the com petent authority". The proviso to this sub-section states that if any educational management etc. contravenes the provisions of this sub-section, the teacher affected shall be deemed to be in service. Where a proposal to dismiss etc. any teacher is communicated to the competent authority, according to sub-section (2) of this section, that authority shall, if satisfied that there are adequate and reasonable grounds for such proposal, approve such dismissal, removal or reduc tion in rank or termination of appointment. Clause (a) of sub-section (3) of this section states that no teacher employed in any private educational institu tion shall be placed under suspension, except when an enquiry into the gross 'misconduct of such teacher is conten1plated. Clause (b) provides that no such suspension shall remain in force for more than a period of two months from the date of suspension and if such inquiry is not completed within that period, such teacher shall, without prejudice to the inquiry, be deemed to have been restored as teacher. The proviso states that the competent authority may, for reasons to be recorded in writing, extend the said period of two months for a further period not exceeding two months, if in his opinion, the inquiry could not be completed within the said period of two months for reasons directly attnbutable to each teacher. Section 4 gives a right of appeal to teachers employed in private educational institutions against orders of punishment imposed on them.

Section 5 deals with special provisions regarding appeal in certain past dis·

ciplinary cases.

•

•

1

•

f

Section 6 which deals with retrenchment of

teachers provides that where retrenchment of any teacher is rendered necessary consequent on any order of to any the Government relating to education or course of instructions or other matter, such retrenchment may be effeoted with the prior approval of the competent authority.

Section 7 · provides for payment of pay and allowances to teachers

in

the

B

¥-·-

ALL SAINTS !IlGH SCHOOL V. GOVT. OF A.P.

92 5

The appellants who were minority educational institutions established by A

members of the Christian commnnity filed writ petitions before the High Court impugning various provisions of the Act as being violative of the &'llarantee con· 1ained in Article 30 (I) of the Constitution by permitting or compelling inter ference with the internal administration of their private educational institutiions. In particular they challenged the provisions of sections 3 to 7 of the Act on the gronnd that they deprive them of their right to administer the affairs Of minority institutions by vesting the ultimate administrative control in an out· B side authority. The contentions having been rejected by the High Court they filed appeals by special leave.

HELD s Permajorily-(Chandrachud, CJ., and Fazal Ali, J.-Kailasam, J.,

dissenting.) :

Sub-sections (I) and (2) of section 3 are invalid and cannot be applied to

minority institutions.

C

Per majorily-(Chandrachnd, C.J., and Kailasam J.-Fazal Ali, J. dissent.

mg).

Clauses (a) and (b) of section 3(3) do not offend against Art. 30(1) and

are valid.

By the Court: Sections 4 &. 5 are unconstitutional as being Yiolative of Art. SO(IJ.

D

Per majority IChandrachnd, C.J., and Kailasam J-Fao:al Ali, J, dissenting) •

Section 6 is valid.

By the Court :

Section 7 is valid.

•

l'

•

)

Per Chandrachud, C.J.

Section 3 ( 1) and 3 (2) are unconstitutional

they are made applicable to minority institutions since in practice these provisions are bound to interfere substantially With their right to administer their choice.

institutions of

in so far as

[937E]

I. (a) Section 3 (I) gives an unqualified mandate that no teache" shall be dismissed etc. except with the prior approval of the competent authority. Under the proviso, contravention of the !ection results in a total invalidation of the proposed action. lf the section is contravened the teacher shall be deemed to be in service. Secondly, the sub-section applies not only to cases in which the teacher is punished by an order of dismissal etc. but to cases in which the appointment is otherwise terminated. An order of termination simpliciter is also required to be submitted for the prior approval of the competent autbo~ rity. All this shows that the true object of the sub-section is not that which one could liberally assume by reading down the section.

[935H; 936ABJ

_> ,

E

F

G

(b) In the absence of any rules furnishing guidelines on the subject, it is section would be difficult to predicate that in practice the operation of limited to a certain class of cases only. The absence of rules on the subject makes the unguided discretion of the competent authority the sole arbiter of the question as to which cases would fall within the section and which would fall outside it.

[936 B-F]

the

(c) Section 3(2), nnder the guise on coaferring the power of approval, B

confers upon the competent authority an appellate power of great magnitude. That authority is made a judge both 'll facts and on law by the conferment upon

•

•

926

SUPREME COURT REPORTS

[1980] 2 S.C.R,

it of a power to test the validity of the proposal on the vastly subjective touch stone of adequacy and reasonableness. The sub-section leaves no scope for reeding down the provision of section 3 ( 1). The two sub-sections together con fer upon the competent authority, in. the absence of proper rules, a wide and untrammelled discretion to interfere with the proposed orde.r whenever in its opinion the order is based on grounds \Vhich do not appear to it either ade quate or reasonable.

[936G-H; 937Al

that the

(d) Though the section provides

competent authority "shall" approve. the proposed order if it is satisfied th11t it is based on adequate and reasonable grounds, its plain and necessary implication is that it shall not ap prove the proposal unless it is satisfied. The conferment of such a power on an outside authority, the exercise of which is ma.de to depend purely on subjective consideration 0rising out of twin formula of adequacy and reasonableness, can not but constitute an infringement of the right guaranteed by article 30(1). [937C]

State of Ker(lfu v. Very. Rev. Mothe1· Provincicil [197 lj 1 SCR 734, D.A.V. College v. State of Punjab [1971] Suppl. S.C.R. 688 and Alimedabad St. Xaviers College Society' v. State of Gujarat [1975] I S.C.R. 173; referred to.

2. (a) Section 3(3)(a) and 3(3)(b) of the Act do not offond against the

provisions of article 30(1) and are valid.

[939B-Cl

A

B

c

D

(b) Clause (a) contains but an elementary guarantee of freedom from arbitrariness to the teachers. The provision is regulatory in character since it neither denies to the management the right to proceed against an erring teacher nor does it place an unreasonable restraint on its pov.'er to do so. It aBsumes the right of the managenient to suspend a teacher but regulates that right by directing that a teacher shall not be suspended unless an inquiry into his conduct is contemplated and unless the inquiry is in respect of a charge of gross misconduct. These restraints which bear a reasonable nexus irwith attainment of educational excellence cannot be considered to be/viola tive of the right given by article 30(1). The limitation of the period of sus } pension initially to two months, which can in appropriate cases be extended by another two months, as provided in clause (b) and its proviso, partakes of the same character as the provisions contained in clause (a). A provision founded so patently on plain reason is difficult to construe as an invasion of the right to administer an institution unless that right carried with it the right to maladminister.

[938G-H]

E

F

.. y

G

R

3. Section 4 is unconstitutional as

being violative of article 30(1) to

of the constitution. The section confers upon the government the power provide by mies that an appeal might lie to such authority or officer as it desig nates, regardless of the standing or status of that authority or officer. Second for on all questions of fact and law, thereby is provided ly an appeal throwing open the order passed by the unguided scrutiny and unlimited review of the appellate authority, which would mean that, in the exercise of the appellate power, the prescribed authority or officer in cases can substitute his own view for that of the management even in which two views are reasonably possible. Lastly, while a right of appenl i! given to the aggrieved teacher ~ainst the order passed by the management, no corresponding right is conferred on the management against the order passed by In the absence of a provision for appeal against the order of the competent autho-

the competent authority under section 3(2) of the Act.

the management

to

ALL SAINTS HIGH SCHOOL V. GOVT. OF A.P.

927

rit.f{' refusing to approve the action proposed by the management, m-.agemcnt is pleased in a gravely dis-advantageous position vis-a-vis teadier who is given the right of appeal by section 4.

[939D·H]

A-

tbc the

Section 5 must fall with section 4.

[940B]

It is implicit in the provisions of this section B

4. Section 6 is valid. The section aims at affording a minimal guarantee of ie.Curity of tenure to teachers by eschewing the passing of 1nala-fide orders in the garb of retrenchment. tkat the limited jurisdiction which it confers upon the con1petent authority is to examine whether, in cases \vhere 1he retrenchment is stated to have become necessary by reason of an order passed by the Goven1ment, it has in fact so hecon1e necessary. The conferment of a guided and limited pov.er on the competent authority for the purpose of finding out whether, in fact the retrenchment has bC:come necessary by reason of a Govemmentci1 order can 4 net constitute an interference with the right of administration conferred by article 30(1 ).

[940D-F]

c·

Section 7 is regulatory in its character and is valid.

[940H]

Per Fazal Ali, /.

On an exhaustive analysis of the authorities of this Court on the various aspects of the fundamental right· enshrined in article 30(1) of the Constitu- tiOB the following propositions of law emerge : -

[)·

(i) Article 30(1) enshrines

to manage and

th:e fundamental right of the miaority their educational insti

administer

institutions tutions.

[967H]

(ii) Although,

the

right conferred by

this article is absolute, un fettered and unconditional, it does not mean that it gives a licence for maladministration so as to defeat the avowed object of the E article, namely to advance excellence and perfection in the field. of education.

[968B]

(iii)

\Vhile the State or any other statutory authority has no right to interfere with the internal administration of the 1ninority institu tion, it could take regulatory measures to pron1ote the efl:iciency and excellence of educational standards and issue guidelines for ensuring the security of the services of the tt:achers and other employees of the institution.

[968C]

(iv) Under the garb of adopting regulatory measures. the State or any other authority cannot destroy the administrative a·ulonomy of the institution or interfere with institution so as to render the right of adn1inistration of the management of the institution illnsory.

the management

[968E]

the

..._)f

(v) By its very nature article 30 implies that where an affiliation is asked for, the university cannot refuse the same without sufficient reason or try to in1pose such conditions as cornplctely destroy the autonomott>; administration of insti tution.

the educational

[968G]

\Vou!d

F

G

(vi) Induction of an outside authority in the governing body of

the

minority institution to conduct the affairs of the institution \\'ould. Il be completely destructive of the fundamental right under <lrticle 30(1), where a high authority like the Vice·Chancellor or his

5-138SCI/80

928

SUPREME COURT REPORTS

(1980] 2 S.C.R.

is <1ppointed

nominee should not be thn1st so as to have a controlling voice n1atter overshado\Ying the pOV.'ers of

the administration,

such authorities tbe the managing commitlee. [96BH]

in

in

,governing

the conditions of

{vii) Jt is open to the Government or the University to fran1e rules and regulations teachers in order to secure their tenure of service and to appoint n high authority to see that the rules are not violated or the mctnbcrs of not the staff are not victimised. institution but n1erc:1y to to interfere with the autonomy of improve the excellence and .efficiency of education. f\O, an authority should not be given a blanket uncanalised .and arbitrary powers.

Jn such .cases the purpose

'iervice of

[969E-F)

Even

the

is

(viii) \\'here a minority institution affiliated to a university is enjoUied to adopt courses of study of the syllabi or the nature of books prescn"bed and the ho1ding of examination to test the ability of the students of the institution, it does not follow- that the free is Yiolated. dom contained in article 30(1) of the Constitution [970AJ (ix) \Vhere a high authority is appointed to exercise vigilance on tbp work of the teachers and to ensure security of tenure for thCm the authority must be given proper guidelines. Before cocting to any decision which may be binding on the n1anaging committee the head of the institution or the senior member. of the managing conunittee must be associated and they should be allowed to have a say in the matter.

[970C]

'

Kera/a Education Bj[[, 1957, [1957] SCR 995; Sidliaibhai Sablwi and Ors. v. State of Bombay and Anr. [1963] 3 SCR &37; Rev. Father W. Proost & Ors. v. State of Bihar [1969.l 2 SCR 73; State of Kera/a etc. v. Yem Rev. Mother Provincial etc. [1971] 1 SCR 734; D.A.V. College etc. v. State of Puniab & Ors. [1971] Suppl. SCR 688 and The Al1medabad St. Xoviers College Society & Anr. etc. v. State of Guiarat [1975] I SCR 173; referred to.

1. (a) Section 3 in its entirety is ultra-vires as being violative of article is wholly inapplicable to the appellants who are minority imti

30(1) and tutions.

[97 5B]

(b) The proviso enjoins that any contravention of the provisions would not affect the teachers who would be deemed to be in service. It i~ manifest that in the absence of any rules the proviso would have no application and even if it applied it would amount to a serious inroad on the fundamental their own affairs. right of the minority institutions to administer or manage [971H]

(c) Sub-section 2 of section 3 is unconstitutional as being vio1ative of article It suffers from the vice of excessive delegation of powers and con~ 30(1). fers undefined, absolute and arbitrary powers to grant or to refuse sanction to any action taken by the managing committee and almost reduces the institution to a helpless position.

[973B-C]

B

c

D

F

G

H

( d) If the State wanted to regulate

teachers, it should have taken care to make proper rules giving

the conditions of service of the sufficient

,J/i'

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•

~ ;a.__•

ALL SAINTS HIGH SCHOOL v. GOVT. OF A.P.

929

wowers to the n1anagement in the manner in which it \Vas to act. fnduction ,of an outside authority into the institution and making bis decision final ·was .a. blatant interference \vith the autonomy of the The words ~·adequate and reasonable" are too vague and do not lay down any objective the competent antho- "Standard to judge the discretion to be eixercised by Tity whose order would be binding on the institution. f972F-G]

institution.

is only is not a very high authority such

(e) While section 4 gives a right of appeal to the aggrieved· teacher no such right has been given to the management to/ file an appeal against the order of t)le .competent authority if it refuses to grant sanction to the order of the ~.fana~ ging Committee of the institution. The competent authority the District Educational Officer who lL"l a Director of Public instruction or Vice-Chancellor of a University. No time limit has been fixed by the statute \Vithin which the competent authority is to give its approval. The cumulative effect of clause (a) and (b) of section 3 (3) and the proviso is to interfere with the internal administration It deprives of the rrtinority institutions and curb the power of suspension. the institution of the right of taking any disciplinary action against a teacher. The adjective "gross'' before the term "misconduct in clause (a) destroys the power of suspension which the minority institution possesses. The provision contained in clause (b) of section 3 (3) providing that no suspension shall remain in force for a period of more than two months from the date of sus pension and if no inquiry is completed within this period the teacher \\'oulct have to be reinstated. gives an unqualified right to a teacher in the matter of suspension which even a government servant does not enjoy. [973A, 974D-EJ

2. Section 4 is ultra-vires and is violative of article 30 of the Constitution. It does not contain any guidelines as to the manner in which the pow·er could ~e exercised, nor does it contain any provision which may entitle the minority institution to be heard by the appellate authority. The conferment of an abSOlute and unguided power on the appellate authority \VOuld amount to a direct interference with the right enshrinecl in article 30(1) and makes the minority institution a powerless body.

[976B; 975GJ

3. If section 4 is inapplicable to the minority institution Section 5 also

follows the same fate.

[976C]

4. Section '6 which contains an un-canalised and unguided power suffers 'The words "administer edu from the same vice as in the case of section 3. cational institutions of their choice'' in article 30 clearly indicate the institution has an absolute right to select teachers, ret.1.in them or retrench them at its sweet will according to the norms prescribed by the institution or by the religious order "'·hich has founded the institution.

[976HJ

that

5. Sectiori 7 is an innocuous provision and is valid.

[977C]

6. Sections. 8, 9, 12 and 13 are inapplicable to the minority institutions. [977D, 978B]

7. Section 16 suffers from a serious defect namely that the provision re garding appeal to the appellate authority v,;as valid then it completely bars the right of the management to file a suit to challenge the order of the appellant. To this extent the section makes serious inroad 011 the fundamental right of the minority institutions and is inapplicable to ti. 'illinority institutions.

the validity of

[978G]

Section 17 is inapplicable.

[978F]

A '

B

c

D

E

F

G

H

930

SUPREME COURT REPORTS

[1980] 2 S.C.lt. •

' A

Per Kailasam, J.

In the case of institutions

1. A reading of the various decisions rendered by this Court on the inter pretation of article 30(1) of the Constitution makes it clear that while the right to establish and administer a minority institutiOn cannot be interfered, with, restrictions by way of regulations for the purpose of maintaining the educational standards of the institution can be validly in1posed. For main- taining the educational standards of the institution as a whole, it is necessary to ensure that it is properly staffed. Conditions imposing the minimum quall fications of the staff, their pay and othar benefits, their service conditions, the imposition of punishment will all be covered and regulations of such a nature that are valid. the duty the government who grants aid to see that the iunds are properly of utilised. Regulations can be made by the government for ensuring the proper conditions of service of the teachers and for securing fair pro cedure in the matter of disciplinary action against them. Prescribing uni formity in the conditions of service and conduct of teachers in all non-govern mental colleges would promote harmony, avoid frustration and, therefore, is permissible. Rules prescribed by the university or other authority may require that no member Of the teaching or non-teaching stafi of a recognised or ap proved institution shall be dismissed etc., except after a proper cnquity. If the regulations require thei approval of the competent authority for safe guarding the rights of the teachers and for securing the procedure there can be no objection. Such authority can also interfere with the decision of tl•ie private institutions when ,the punishment awarded is malafide or by way of victimisation or for similar causes.

[989B; 993D-G[

receive aid

it

is

Kera/a Education Bill [1959] SCR, 995, Rev. Sidhajbhai Sabhai & Ors, [1963] 3 SCR 837, Rev. Father W. Proost and Ors. v. State of Bihar & Ors. [1969] 2 SCR 73, State of Kerala v. Very. Rev. Mother Provincial [19711 I SCR 734, D.A.V. College etc. v. State of Punjab & Ors. [1971] Suppl. &C.R. 688 and Ahniedabad St. Xaviers College Society and A.rir. etc. v. State af Guiarat [1975] 1 S.C.R. 173, referred to.

2. It is not only reasonable but proper that a restricted meaning is given to the power of prior approval conferred on the competent aU:thority under sec· It is a well established principle of interpretation that the tion 3 of the Act. statement of objects and reasons could\ be referred to for the limited purpose of ascertaining the conditions prevalent at the time which actuated the sponsor <>f the Bill to introduce the same and Iha extent of urgency and the e"11 songht to be remedied. Clearly the legislation was intended to regulate the service conditions of teachers employed in the private educational institutions and for the security of service of the teachers. Tile power contained in section 3(t) and 3(2) is reStricted to regulating the service conditions of teachers and for ensuring their security of se-rvice.

[1001C; 998A-B]

3. While interpreting a provision of law the Court will presume that the legislation was intended to be intra vires and also reasonable. The section ought to be interpreted consiste-nt with the presumption which imputes to the legis lature an intention of limiting the direct operation of its enactmerit to the extent that is permissible. A reading down of a provision of a statute puts into operation the principle that so far as it is reasonably possible to do so, the legis lation should be construed as being within its power. It has the principle effect

B

c

D

E

F

G

H

•

'

•

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•

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•

ALL SAINTS HIGH SCHOOL V. GOVT. OF A.P .

931

<that where an Act is expressed in language of generality, which makes it cap able, if read literally, of applying to matters beyond the relevant legislative powers, the Court will construe it in a more limited sense so as to keep it within power.

[998E-F]

The State of West Bengal v. Sub/wdh Gopal Bose and Ors. (1954] SCR :i87, Att. Genl. v. HRH Prince Earnest Augstas of Hanover, [1957] AC. 436, Keshavananda Bharti v. State of Kerala [1973] Suppl. S.C.R. 1, 101, Towns v. .Eigner 245 U.S. 413·62 Led. 372, 376 and Kedar Nath Singh v. State of Bihar [1962] 2 Suppl. SCR 769; referred to.

In the instant case it must be presumed that the legislature was conscious of the limitations of the po\ver which the competent authority can have in granting or withholding apprQ!Val in the c:ase· of disciplinary proceedings con· -ducted by private institutions. The object of the legislation in this case was very different from ether cases in which 1h~ legislation was aimed &t depriving the minority institutions' of all their powers. Its only aim is to provide security of service. There are sufficient guidelines ~ the objects and reasons as well as in the preamble.

[I 00 I B-C]

(2)

and

that

section 3(1)

(2) must be read

4. (a) The contention

lack guidelines and have conferred a blanket power cannot be accepted. Section 3(1) together. The wordsi "ad~quate and reasonable" and should be given a re~tricted meaning so as to validate· the provisions of the section. The approval of an order contemplated by sub-section (2) will have to be read with sub·section (1). Sub-section (2) required the competent autho rity to approve such a proposal if it is satisfied that there are adequate and J.easonable grounds for such proposal. The words "adequate and reasonable" furnish sufficient guidelines. The competent authority can interfere if there are no materials at all for sustaining the order of punishment or when on the materials found chc charge is completely baseless and preserve. The word "ade~ quate" will have to bC' understood as being confined to such examination of the proposal. The y.;ord "reasonable·~ would indicate that the power of the interfere competent authority is confined to the power of an authority with the enquiry and the conclusions arrived at by the domestic tribunal. It cannot be understood as conferring nbsolute power to interfere '\Vith the enquiry by the tribunal as a Court of appeal on merits.

[1002E; 1001G-H]

to

(b) The plea that the "competent authority" may be any petty officer can not be upheld because it is defined in section 2(1) to mean "any authority, officer or person authorised by notification perfomling the functions of com petent authority". The officers of the educational dtpartment who are in charge of the administration of educational institutions in the area cannot be called petly officers.

[I002H]

(c) Clauses (a) and (b) of sub·section (3) cannot be said to interfere with the right of administratio;n of the, private institutions. 1b.e two clauses are regulatory in nature and are intended to safeguard the teachers from being, suspended for unduly long periods ·without there being an enquiry into 1'gross mis·conduct."

[1003C]

(d) Sub-section (4) of section 3 which states that every

teacher pla<:ed ·.under suspension shall be paid subsistence allowance at such rates as may be

A

B

c

D

E

F

G

H

,

•

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-1.

932

SUPREME COURT REPORTS

(1980] 2 S.C.R. •

A

prescribed during the period of his suspension is purely regulatory in -n~ture­ [1003D] and. therefore, un-objectionable.

•

'

•

5. Section 4 is invalid. The vice contained in this section is that the riiht of appeal which is confined only to the teachers is not available to institutions. 1003Fl to hear in certain, past disciplinary cases will have to fall' along with-

6. Section 5 which! confers poWer on the competent authority

appeals section 4.

[1003G]

7. Section 6 [ 1003H]

tioned.

is also regulatory in nature and its validity cannot be ques

8. Section 7 is :egulatory in nature and is intended for securing regular

payment to the teachers.

[1004A]

CIVIL APPELLATE JURISDICTION : Civil Appeal Nos. 1280, 1279,

1327-1330 of 1978 and 35 of 1979.

Appeals by special leave from the Jndgment and Order dateci' 2-8-1978 of the Andhra Pradesh High Court in Writ Petition Nos. 718, 5505. 3618, 5506, 5518, of 1975 and 604/78 and 4814/1975.

L. N. Sinha, K. Srinivasa Murthy, Naunit Lal and M. Panduranga

for the Appellants in CA Nos. 1279, 1280, 1327-1330/78.

S. N. Kackar, Sol. Genl., Venkatarao and G. N. Rao for R. 1 in CA 1280, RR 1-3 in CAs. 1327 & 1329 and RR 1 & 2 in 1328 & 1330.

II. S. Gururaja Rao and S. Markendaya for RR 2-3 in CA 128()

B

c

D

E

and R. 4 in CA 1279.

K. M. K. Nair for R. 4 in CA 1329

S. Balakrishnan for R. 8 in CA 1329

F

G. Narasimhulu for R. 3 in CA 1330

B. Parthasarthi for the Appellant in CA 35/79.

B. Kanta Rao for the RR 4-5 in CA 35/79.

The following Judgments were delivered

•

G

CHANDRACHUD, C.J.-Article 30(1) of

the Constitution pro-

vides:

All minorities, whether based on religion or language, shall have the right to establish and administer educational institutions of their choice.

H The question which arises in these appeals is whether certain provi sions of the Andhra Pradesh Recognised Private Educational Insti tutions Control Act, 11 of 1975, offend against the fundamental right

, >

•

,

•

~ ALL SAINTS HIGH SCHOOL v. GOVT. OF A.P. (Cha11draclmd, C.J.) 933

conferred on mioorities by Art. 30 ( 1). The appellants are un- questiOlll!bly minority educational institutions, having been establish- ed by members of .the Christian community .

. My learned Brothers, Murtaza Fazal Ali and Kailasam, have examined the authorities bearing on the question before us. The reilSons which impelled me to write a separa~ judgment are my in ability to agree wholly with the various observations made by Justice Fazal Ali and with some of the prO]JOsitions which he has formulated as etlh,"t"ging from the decisions referred to by him, as also with the conclusion to which Justice Kailasam has come. I do not consider it necessary to examine all the decisions of this Court in which Art. 30(1) has received a full and careful consideration. These deci- sions are reported in Re Kera/a Education Bill(!) 1957,, Rev. Sidhaj bhai Sabhai v. State of Bombay( 2 ) Rev. Father W. Proost v. The State of Bihar(') State of Kera/av. Very Rev. Mother PrGvincial( 4 ) D. A. V. College v. State of Pu'njab(') The Ahmedabad St. Xaviers College Society v. State of Gujarat(") Gandhi Faizeam College Shaha jalzanpur v. University of Agra(') and Lilly Kurian v. Sr. Lewina(') Almost each succeeding judgment has considered and analysed the previow judgment or judgments. I regard the matter arising before us as well-settled, especially after the 9-Judge Bench decision in Alunedabad St. Xaviers College Society (supra) and the recent judg ment of the CQ!lstitution Bench in Lilly Kuria11,(') All that we have to do iil this case is to apply the law laid down in these decisions.

0L- / ""

Tiie.se decisions show that while the right of the religious and linguistic minorities to establish and administer educational institu tions of their choice cannot be interfered with, restrictions by way of regulations for the purpose of ensuring educational standards ond maintaining the excellence thereof can be validly prescribed. For maintaining educational standards of an institution, it is necessary to ensure that it is competently staffed. Conditions of service which prescrif:le minimum qualifications for the staff, their pay scales. their entillcment to other benefits of service and the laying down of safe guaids which must be observed before they are removed or dismisse([ from service or their services are terminated are all pcrmis>ib!e measures

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({j [1959] S.C.R. 995. (2) (1963] 3 S.C.R. 837. (3) [1969] 2 S.C.R. 73. (4) [1971] l S.C.R. 734. (SJ [1971] Supp. S.C.R. 688. (lij [1975] 1 S.C.R. 173. (7) [1975] 3 S.C.R. 810. (8) (1979] l S.C.R. 820.

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SUPREME COURT REPORTS

[1980] 2 S.C.R.

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in Re : of a regulatory character. As observed by Das C.J., Kera/a Education Bill, (supra) "Right to administer cannot obviously include the right to mal-administer", and in the words of Shah J., in Rev. Sidhajbhai, (supra) "The right is subject to reasonable restric tions in the interest of efficiency of instruction, discipline, health, sanitation, morality, public order and the like". Hidayatnllah C.J. said in Very Rev. Mother Provincial (supra) that "Standards of education are not a part of management as such", that the "minority institutions cannot be permitted to fall below the standard of excel lence expected of educational institutions" and that "the right of the State to regulate education, educational standards and the allied Justice Jaganmohan Reddy, in D. A. V. matters cannot be denied". the Guru College (supra) reiterated while upholding clause 18 of Nanak University, Amritsar Act, 1961 that regulations governing recruitment and service conditions of teachers of minority institutions, which are made in order to ensure their efficiency and excellence do not offend ·against their right to administer educational institutions of their choice

In the case of institutions that receive State aid, it is the duty and obligation of the Government which grants aid to see that pablic funds are usefully and properly expended. If the expenditure incur red for paying the emoluments of the staff is subsidised or financed from out of State funds, it becomes the duty of the State to se~ that no one who does not possess the minimum qualifications is zppointed on the staff, the pay and other emoluments of the staff are guaranteed and their service conditions secured. Minority institutions which receive State aid cannot complain of conditions subject to which the aid is granted, so long as such conditions do not amount to discrimi nation against them on the ground of language or religion nnd so long as the aid is not made to depend upon the performance or obser vance of conditions which amount to deprivation of the right guaran teed by article 30( l). There is also no doubt that minority insti tutions cannot be discriminated against in the matter of granting State aid.

No institution, minority or majority, has a fundamental right to recognition by the State or affiliation to the University, but ~ince recognition and affiliation are indispensable for an effective and fruit ful exercise Of the fundamental right of minorities to establish and administer educational institutions of their choic_e, they are entitled to recognition and affiliation if they agree to accept and comply with regulatory measures which are relevant for granting recognition and affiliation, which are directed to ensuring educational excellence of

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• ALL SAINTS HIGH SCHOOL I'. GOVT. OF A.P. (Chandrachud, C.J.) 935

J

the institution concerned and which, largely and substantially, leave uJlimpaired the right of administration in regard to internal affairs of the institution.

The impugned Act, by reason of section 1 (3), applies to all private educational institutions, whether or not they are established by minorities. The appellants' contention is that several provisions ·of the Act violate the guarantee contained in Art. 30(1) by permit ting or compelling interference with the internal administration of established by minorities. The private edncational 'appellants are particularly aggrieved by the provisions of sections 3 t() 7 of the Act, the validity whereof in challenged on the ground that they deprive the appellants of their right to administer the affairs of minority institutions by vesting th.e ultimate administrative control in an outside authority. These contentions having been rejected by the High Court of Andhra Pradesh, the appellants hav~ filed these appeals by special leave.

institutions

that Section 3 ( 1) of the Act provides that, subject to any rule may be made in this behalf, no teacher employed in any private edu cational institution shall be dismissed, removed or reduced in rank nor shall his appointment be otherwise terminated, except with the prior approval of the competent authority. The proviso to the sec tion says that if any educational institution contravenes the aforesaid provision, the teacher affected by the contravention shall be deemed to be in service. Section 3 (2) requires that where the proposal to dismiss, remove or reduce in rank or otherwise terminate the appoint ment of any teacher employed in any private educational institution is communicated to the competent authority, that authority shall approve the proposal, if it is satisfied that there are adequate and

. reasonable grounds for the proposal.

For appreciating their trne meaning and effect, sections 3 (1) and 3 (2) have to be read together. The requirement of prior approval of the competent authority to an order of dismissal, removal, etc. may not by itself be violative of article 30 ( 1) because it may still ~e possible to say, on a reasonable construction of the provision lay mg down that requirement, that its object is to ensure compliance with the principles of natural justice or the elimination of malll fide;j or victimisation of teachers. But I find it difficult to read down section 3 (I) so as to limit its operation tn these or similar consi det'ations. limit its operation in that manner; on the contrary, it gives an unqualified mandate that no teacher shall be dismissed, removed, etc. exc~pt with

the section does not itself

In the first place,

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936

SUPREME COURT REPORTS

(1980] 1 S.C.R •.

If the section is contravened the teacher

the prior approval of the competent authority. Under the proviso,. contravention of the section results in a total invalidation of the pro-· posed action. shall be; deemed to be in service. Secondly, section 3 ( 1) not only applies. to cases in which a teacher is, what is generally termed as 'punished', by an order of dismissal, removal or reduction in rank, but it also applies to cases in which an appointment is otherwise terminated. An order of termination simpliciter which involves no stigma or asper sion and which does not result in any evil consequences is also re quired to be the prior approval of the competent authority. The argument that the principles of natural justice have· not been complied with or the argument of ma/a fide~ andi victimisa tion has seldom any relevance if the services are terminated in accor dance with the terms of a contract by which the tenure of the employ ment is limited to a specified period. This shows that the true object of section 3 ( 1) is not that which one could liberally assume· py reading down the section.

submitted for

Section 3 (1) is subject to any rules that may be made in behalf If the State Government were to frame of the matter covered by it. rules governing the matter, there would have been some tangible. circumstances or situations in relation to which the practical opeca tion of section 3 (1) could have been limited. But in the abselll:e of any rules furnishing guidelines on the subject, it is difficult to predicate that, in practice, the operation of the section will be limited to a certain class of cases only. The absence of rules on the subject makes the unguided discretion of the competent authority the sole. arbiter of the question as to which cases would fall within the section· and which would fall outside it.

Any doubt as to the width of the area in which section 3(1) operates and is intended to operate, is removed by the provision con tained in section 3 (2), by virtue of which the competent authority "shall" approve the proposf!), "if it is satisfied that there are adequate· and reasonable grounds" for the proposal. This provision, under the guise of conferring the power of approval, confers upon the com petent authority an appellate power of great magnitude. The com petent authority is made by that provision the sole judge of the pro priety of the proposed order since it is for that authority to see whether there are reasonable grounds for the proposal. The authority is in deed made a judge both of facts and law by the conferment upon it of the vastly subjective a power to test the validity of the proposal on touch-stone of adequacy and Section 3 (2), in my opinion, leaves no scope for reading down the provisions of sectioro

reasonableness.

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ALL SAINTS HIGH SCHOOL v. GOVT. OF A.P. (Chandrachud, C.J.) 937

3 ( ! ) . The two sub-sections together confer upon the competent authority, in the absence of proper rules, a wide and untrammelled discretion to interfere with the proposed order, whenever, in its opinion, the order, is based on grounds which do not appear to it either adequate or reasonable.

The form in which Section 3 (2) is couched is apt to mislead by creating an impression that its real object is to cast an obligation on the competent authority to approve a proposal under certain condi the competent authority tions. Though the section provides that "shall" approve the proposed order if it is satisfied that it is based on adequate and reasonable grounds, its plain and necessary implication is that it shall not approve the proposal unless it is so satisfied. The the exer confernment of such a power on 1lll outside authority, cise of which is made to depend on purely subjective considerations arising out of the twin formula of adequacy and reasonableness, can not but constitute an infringement of !)le right guaranteed by Art. 30 (1).

I find it difficult to save sections 3 ( 1) and 3 (2) by reading them down in the light of the objects and reasons of the impugned Act. The object of the Act and the reasons that led to its passing are laudable but the Act, in its application to minority institutions, has to take care that it does not violate the fundamental right of the minorities under Art. 30(1). Sections 3(1) and 3(2) are in my opinion unconstitutional in so far as th~ made applicable to minority institutions since, in praetice) 1hese. provisions are bound to interfere substantially with their riglit to administer institutions of their choice. Similar provisions were held to be void in V rry l?ev. Mother Provincial, D. A. V. College and Lilly Kurian. (supra) There is no distinction in principle between those provisions and the ones contained in sections 3 (1) and 3 (2).

For these reasons, I am in agreement with Brother Fazal Ali that Sections 3 (1) and 3 (2) of the impugned Act cannot be applied to minority institutions, since to do so will offend against Article 30 (1 ).

Section 3 (3) (a) provides that no teacher employed in any pri vate educational institution shall be placed under suspension except when an inquiry into the gross misconduct of such teaci1er is con templated. Section 3 (3) (b) provides suspension sball remain in force for more than a period of two months and if the inquiry is not completed within that period the teacher shall, without prejudice to the inquiry, be deemed to have been restored as

that no such

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SUPREME COURT REPORTS

[1980] 2 S.C.R.

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a teacher. The proviso to the sub-section confers upon the e-0m petent authority the power, for reasons to be recorded in writing, to extend the period of two months for a further period not exceeding two months if, in its opinion, the inquiry could not be completed within the initial period of two months for reasons directly attribut- able to the teacher.

With respect, I find it difficult to agree with Brother Fazal Ali that these provisions are violative of article 30 (1). The question which one has to ask oneself is whether in the normal course of affairs, these provisions are likely to interfere with the freedom of minorities to administer and manage educ:,itional institutions of their It is undoubtedly true that no educational institution can choice. function efficiently and effectively unless the teachers observe at least Indisciplined the commonly accepted norms of good behaviour. teachers can hardly be expected to impress upon the students the value of discipline, which is a sine qua non of educational excellence. They can cause incalculable; harm not only to the cause of education but to the society at large by generating a wrong sense of values in the minds of young and impressionable students. But discipline is not to be equated with dictatorial methods in the treatment of teachers. The institutional code of discipline must therefore con form to acceptable norms of fairness and cannot be arbitrary or fanci- I do not think that in the name of discipline and in the purport ful. ed exercise of the fundamental right of administration and manage ment, any educational institution can be given the right to 'hire and fire' its teachers. After all, though the management may be left free to evolve administrative policies of an institution, educational instruc tion has to be imparted through the instrumentality of the teachers; and unless, they have a constant assurance of justice, security and fair play it will be impossible for them to give of their best which alone can enable the institution to attain the ideal of educational excellence. Section 3 (3) (a) contains but an elementary guarantee of freedom from arbitrariness to the teachers, The provision is regulatory in character since it neither denies to the management the right to proceed against an erring teacher nor indeed does it place an unreasonable restraint on its power to do so. It assumes the right of the management to suspend a teacher but regulates that right by directing that a teacher shall not be suspended unless an inquiry into his conduct is contemplated and unless the inquiry is in respect of a charge of gross misconduct. Fortunately, suspension of teachers is not the order of the day, for which reason I do not think that these restraints which bear a reasonable nexus with the attainment of edu cational excellence can be C-Onsidered to be violative of the right given

ALL SAINTS HIGH SCHOOL v. GOVT. OF A.P. (Chandrachud, C.J.) 939

by Art. 30 ( 1). The limitation of the period of suspension initially to two mo)lths, which can in appropriate cases be extended by another two months, partakes of the sa.!!le character as the provision contained in section 3 (3) (a). In the _generality of cases, a domes tic inquiry against a teacher ought to be completed within a period of two months or say, within another two months. A provision founded so patently on plain reason is difficult to construe as an invasion of the right to [ldminister an institution, unless that right . carried with it the right to maladminister. I therefore agree with Brother Kai!asam that sections 3 (3) (a) and 3 (3) (b) of the Act do not offend against the provisions of Art. 30 (1) and are valid.

Section 4 of the Act provides that any teacher . employed in a private educational institution (a) who is dismissed, removed or reduced in rank or whose appointment is otherwise terminated; or (b) whose pay or allowances or any of whose conditions of service are altered or interpreted to his disadvantage, may prefer an appeal to such authority or officer as may be prescribed. This provision in my opinion is too broadly worded to be sustained on the touchstone of the right conferred upon the minorities by Art. 30 ( l). In the first place, the section confers upon the Government the power to provide by rules that an appeal may lie to such authority or officer as it designates, regardless of the standing or status of that authority or officer. Secondly, the appeal is evidently provided for on all questions of fact and law, thereby throwing open the order passed by the management to the unguided scrutiny and unlimited review of the appellate authority. the language of the section to interpret it to mean that, in the exercise of the appellate power, the prescribed authority or officer can substi tute his own view for that of the management, even in cases in which two views are reasonably possible. Lastly, it is strange, and perhaps an oversight may account right of appeal is given to the aggrieved teacher against an order passed by the management, no corresponding right is conferred on lhe manage ment against an order passed by the competent authority under sec tion 3 (2) of the Act. It may be recalled that by section 3 (1), no teacher can be dismissed, removed, etc. except with the prior appro val of the competent authority. Section 3 (2) confers power on the competent authority to refuse to accord its approval if there are no In the absence of adequate and reasonable ground for the proposal. the µrovision for an appeal against the order of the competent autho rity refusing to approve the '¥'lion proposed by the management, the management is placed in a gravely disadvantageou§ position vis-a-vis

It would be doing no violence to

for the lapse, that whereas a

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SP~REME COURT REPORTS

[1980] 2 s.c.R. ·

the teacher who is given the right of appeal by section 4. By reason of these infirmities I agree with the conclusion of my learned Brothers that section 4 of the as being violative of article 30 (1).

impugned Act is unconstitutionai,

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Section 5 is consequential upon section 4 and must fall witk it.

Section 6 provides that where any retrenchment of a teacher is rendered necessary consequent on any order of the Government relat ing to education or course of instruction or to any other matter, such retrenchment may be effected with the prior approval of the compe tent authority. With respect, I find myself unable to share the view of Brother Fazal Ali that retrenchment of teachers is a purely domes tic affair of minority institutions and that the decisions of the manage ment in the matter of retrenchment of teachers is beyond the scope of statutory interference by reason of Art. 30 (1). Section 6 aims at affording a minimal guarantee of security of tenure to teachers by eschewing the passing of mnla fide orders in the garb of retrench ment. As I look at the section, I consider it to be implicit in its the provisions that the limited jurisdiction which it confers upon authority is to examine whether, in cases where competent the retrenchment it stated to have become necessary by reason of an order passed by the Government, it has in fact so become necessary. It is a matter of common knowledge that Governmental orders relating to courses of instruction are us~d as a pretence for terminat ing the services of teachers. The conferment of a guided and limited power on the competent authority for the purpose of finding out whether, in fact, a retrenchment has become necessary by reason of a Government order, cannot constitute an interference with the right of administration conferred by Art. 30 (1). Section 6 is therefore I would, however, like to add that in the interests of equal valid. justice, the legislature ought to provide for an appeal against the If and orders passed by the competent authority under section 6. when the provision for an appeal is made, care must be to ensure that the appeal lies to an officer not below the prescribed rank.

taken

Section 7 provides that the pay and allowances of a teacher shall be paid on or before such day of a month, in such manner and by or through such authority, officer or person, as may be prescribed. I agree with my learned Brothers that this provision is regulatory In character and is, therefore, valid.

These are all the sections the validity of which was questioned in It is therefore not neces"

the Writ Petitions filed in the Hjgh Court.

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ALL SAINTS HIGH SCHOOL v. GOYT, OF A,P, (Fazal Au, !,) 941

osary to consider whether the ot]!er provisions of the Act are valid A .or not.

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I concur in the final order proposed by Brother Kailasam that we -need not go into the merits of each of the Writ Petitions filed in the Righ Court, Learned counsel appearing for the schools sought the decision of the High Court on the constitutional issue only, He specifically asked the High Court not to decide each case on its merits, That may, accordingly, be left to the High Court to decide in the ligh~ of the majority opinion re!Jdered by us. We have, by a majority, held that sections 3 (3) (a), 3 (3) (b), 6 and 7 are valid their ( 1), 3 (2), 4 and 5 are while sections 3 ;application follow institutions. that such institutions cannot be proceeded against for violation of provisions which are not applicable to them,

to minority education

invalid It must

in

in conclusion, all the Civil Appeals before us will go back to the High Court of Andhra Pradesh for final disposal on merits in the 'light of our decision, There will be no order as to costs.

FAZAL Au, J. : This batch of civil appeals by special

leave is directed against the judgment of the Andhra Pradesh High Court be fore whom the appellants filed writ petitions under Article 226 of the Constitution challenging the constitutional validity of several sections 'of the Andhra Pradesh Recognised Private Educational Institutions Control Act, 197 5, hereinafter referred to as the Act which contained 21 sections in five Chapters and was brought into force with effect from 5th October, 1974. This Act was also applicable to 19 Edn cational Institutions situated in the State of Andhra Pradesh and the appellants being admittedly minority educational institutions within 'the meaning of Article 30 of the Constitution of India have challenged the vires various sections of the Act which we shall indicate later.

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Some of the 'appeals have been filed by Christian Schools estab lished by Roman Catholic Church and some by Christian Colleges established by the Christian community :

The main grounds of challenge are that the provisions of the Act directly interfere with the internal management of the institutions and ·has completely curbed the constitutional freedom which has been ·guaranteed to them by Article 30(1) of the Constitution of India 'and 'being violative of Article 30(1) of the Constitution are ultra vires and therefore, wholly inapplicable to the appellants institutions.

· It is now well settled by a long course of decisions of this Court •that our Constitution which seeks to establish a secular State contains

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942

SUPREME COURT REP OR TS

[1980] 2 S.C.R •.

sufficient checks and balances, safeguards and guarantees to protect the rights of the minorities, the establishment of educational institu- tions being one of them. Article 46 which contains the constitutional directive to promote educational and economic interests of the weaker sections runs thus : -

C'\,"'

"46. Promotion of educational and economic

interests of Scheduled Castes, Scheduled Tribes and other weaker sections :

The State shall promote with special c•Jre the

educa tional and economic interests of the weaker sections of the people, and, in particular, of the Scheduled Castes and the Scheduled Tribes, and shall protect them from social injus- tice and all forms of exploitation.

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Article 30(1) confors a fundamental rights on the minorities to estab lish and administer educational institutions of their choice. Article 30(2) enjoins on the State that in granting aid to the educational institutions it shall not discriminate against any educational institution on the ground that it is nnder the management of a minority, whether based on religion or language. Thus, it would appear that Article 30(2) extends the guarantee contained in Article 30(1) even in the matter of receiving aid by the cdurntional institution established by the the minority community. While adverting E matter this Conrt in Re: Kerala Education Bill, 1957(') observed as

this aspect of

to

follows:-

"Nevertheless, in determining the scope and ambit of fundamental rights relied on by or on behalf of any person or body the court may not entirely ignore these directive principles of State policy laid down in Part IV of the Cons titution but should udopt the principle of harmonious cons truction and should attempt to give effect to both as much as possible''.

Another important factor which has to be noticed is that the terms in which Article 30 is couched are absolute and unconditional as com pared to Article 19 which is hedged restrictions which may be imposed by the State in public interest. Thus, in a way the fundamental right contained in Article 30 is more effective and wider than the fundamental rights contained in Part III of the Constitution. This, however, docs not mean that the State is com pletely deprived of even the right to regulate the working of the mino rity institutions and to make rules in order to improve the standards.

reasonable

in by

(1) [1959] S.C.R. 995.

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ALL SAINTS HIGH SCHOOL v. GOVT. OF A.P. (Fazal Ali,!.)

943

these

of education imparted therein so as to achieve excellence and effi institutions. Regula ciency in the educational standards of tory measures cannot in any sense be regarded as placing restrictions or curbing the administrative autonomy of the institutions concerned. But care must be taken by the State to see that in passing regulatory measures it does not transcend its limits so as to interfere with the internal administration of the management of the institutions concern ed so as to violate the spirit and policy of Article 30. The question of the scope and ambit of Article 30 of the Constitution of India was very exhaustively considered as far back as in 1959 in Re : Kera/a Education Bill (Supra). This case arose when the President of India called for the opinion of the Supreme Court on a Reference being made to it under Article 143 (1) of the Constitution of India. The Reference was heard by 7 Judges of this Court out of which 6 of them excepting Venkatararna Aiyar, J. gave a unanimous opinion regarding various clauses of the Bill. The provisions of the Kerala Education Bill are not pari materia with the provisions of the Act with which we are concerned in this case, bnt this Court while delivering its opi nion has laid down a number of salutary principles which throw a flood of light on the scope and interpretation of Article 30 of the Constitution of India.

T would, therefore, like to extract certain important passages from the opinion of the Court which dealt with the scope and application of Article 30. I would, however, like to mention that some of the principles laid down by this Court in the aforesaid case may not apply to the present day conditions because there have been numerous changes in all aspects of life and even the concept of equality ha$ undergone a revolutionary change. But the observations made by this Court would afford a very valuable guideline to determine the question in controversy in the present case. While indicating the width of the right conferred on the minority institutions by Article 30(1) this Court pointed out that the right to administer does not en In this connection, visage a right to indulge ·in mal-administration. Das, C.J. speaking for the majority observ"ed as follows : -

'The right to administer cannot obviously include the right to maladminister. The minority cannot surely ~sk for aid or recognition for an educational institution run by them in unhealthy surroi;ndings, without any competent teachers, possessing 11ny semblance of qualification, and which does teaching or which not maintain even a fair standard of teaches matters subversive of the welfare of the scholars. It stands to reason, then, that the constitutional right to ad-

6--138SCI/80

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944

SUPREME COURT REPORTS

[1980] 2 S C.1<.

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minister an education-al institution of their choice does not necessarily militate against the claim of the State to insist that in order to grant aid the State may prescribe reasonable regulations to ensure the excellence of the institutions to be aided".

B Again, while sounding -a note of caution to the Government that no step should be taken by it which amounts to the institution surrender ing its personality merely because the institution is receiving aid from the State, said the Chief Justice thus : -

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"No educational institution can in

actual practice be carried on without aid from the State and if they will not get it unless they surrender their rights they will, by compulsion of financial necessities, be compelled to give up their rights under Article 30(1) ........... .

The State Legislatures cannot, it is clear, disregard or indirect override those provisions merely by employing methods of achieving exactly the same result. Even the Legislature cannot do indirectly what it certainly cannot do directly".

Considering the provisions of the Kera/a Education Bill particu larly Clauses 6, 7, 9, 10, 11, 12, 14 and 15 the Court held that al though these provisions constitute serious inroads on the right of administration of the institution and appear perilously near violating that right, yet in view of the peculiar facts of that case and having regard to the fact that clauses 9, 11 and 12 were designed to give protection and security to the ill paid teachers who are engaged in rendering service to the nation and protect the backward classes the Court as at present advised may treat these clauses -as permissible regulations. These observations were based on the peculiar circum stances of the provisions of the Education Bill and the objects which they sought to sub-serve may not be applicable to the present case where the circumstances me quite different because admittedly most of the appellant institutions are not receiving any aid from the Govern ment. Even so, this Court found it impossible to support clanses 14 and 15 which according to them were totally destructive of the rights guaranteed by Article 30 ( 1).

In this connection, the Court observed as follows : -

"But considering that those provisions are applicable to all educational institutions and that the impugned parts of clauses 9, 11 and 12 are designed to give protection and

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ALL SAINTS HIGH SCHOOL v. GOVT. OF A.P. (Fazal Ali,!.)

945

security to the ill paid teachers who are engaged in render ing service to the nation and protect the backward classes, we are prepared, as at present advised, to treat those clauses 9, 11(2) and 12(4) as permissible regulations which the State may impose on the minorities as a condition for grant ing aid to their educational institutions. We, however, find it impossible to support els. 14 and 15 of the said Bill as mere regulations. The provisions of those clause,;_ may be totally destructive of the rights under Article 30(1)".

the State.

The Court had made it very clear that the observations extracted above applied to those categories of educational institutions which had In the ins sought not only recognition but also aid from institutions have been tant case. however, most of the appellant established by mustering their own resources and have not been receiving substantial aid from the Government. Similarly, the Court made it clear that although the minority institutions had no funda mental right to recognition by the State yet to deny recognition on terms which may amount to complete surrender of the management of the institution to the Government would be violative of Article 30( 1) In this connection, Das, C.J. observed as of the Constitution. follows:-

"There is, no doubt, no such thing as fundamental right to recognition by the State but to d$ny recognition to the educational institutions except. upon terms tantamount to the surrender of their constitutional right of administration of the educational institutions of their choice is in truth and in effect to deprive them of their rights under Article 30(1). We repeat that the legislative power is subject to the funda mental rights and the legislature cannot indirectly take away or abridge the fundamental rights which it could not do directly and yet that will be the result if the said Bill con teining any offending clause becomes law".

Again dwelling on the special character of the minority

institu

tions Das, C.J. speaking for the Court observed thus :

"It is obvious that a minority community can effectively conserve its language, script or culture by and through edu cational institutions and, therefore, the right to establish and maintain educational institutions of its choice is a necessary concomitant to the right to conserve its distinctive language, script or culture and that is what is conferred on all min orities by Article 30(1) which has hereinbefore been quoted in full."

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946

SUPREME COURT REPORTS

[1980] 2 S.C.R.

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Describing the nature of the fundamental rights enshrined in Article

30 the Court observed as follows :-

"There can be no manner of doubt that our Constitution has guaranteed certain cherished rights of the minorities con· ceming their language, culture and religion. These conces sions must have been made to them for good and valid reasons. Article 45, no doubt, requires the State to provide for free and compulsory education for all children, but there is notJ1ing to prevent the State from discharging that solemn obligation through Government a'nd aided schools and Article 45 does not require that obligation to be discharged at the expense of the minority comm uni ties. So long as the Cons titution stands as it is and is not altered, it is, we conceive, the duty of this Court to uphold the fundamental rights and thereby honour our sacred obligation to the minority commu nities who are of our own."

Similarly, Venkatarama Aiyer, J. who gave a dissenting opinion agreed however with the scope of Article 30 as expounded by the majo In this connection, the learned Judge observed as fol rity opinion. lows:-

"Article 30(1) belongs to the same category as Arts. 25, 26 and 29, and confers on minorities, religious or linguistic, the right to establish and maintain their own educatiQnal insti tutions without any interference or hindrance from the State. The true intention of that Article is to equip minorities with a shield whereby they could defend themselves against attacks them by majorities, religious or linguistic, and not to arm with a sword whereby they could compel the majorities to grant concessions."

Various shades and aspects of the matter were again considered by this Court in the case of Rev. Sidhajbhai Sabhai and Ors. v. State In this case it appears that the Government of Bombay & Anr. (') of Bombay issued an order directing the concerned institution which was controlled by the United Church of Northern India to reserve 80% of the seats in the training colleges run by the institutiQn for teachers tJe in non-Government training colleges. These teachers, were to nominated by the Government. Accordingly, the Educational Inspec tor ordered the Principal of the Training College not to admit without specific permissiQn of the Education Department private students in excess of 20% of the total strength in each class. The institution took

(I) [1963] 3 S.C.R. 837.

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ALL SAINTS lllGH SCHOOL v. GOVT. OF A.P. (Fazal Ali, J.)

947

·serious exception to this order of the Government as amounting direct interference in the management of the affairs of the institution. The institution filed a writ petition under Article 32 of the Constitution before this Court which was heard by 6 Judges who after considering the facts of the case and the natnre of the order passed by the Govern· ment obserYed as follows : -

to A

:" I.

"Unlike Article 19, the fundamental freedom under clause (1) of Article 30, is absolute in terms; it is not made subject to any reasonable restrictions of the nature the fundamental freedoms enunciated in Article 19 may be subjected to. All minoriiies, linguistic or religious have by Article 30(1) an absolute right to establish and administer educational insti tutions of their choice; and any law or executive direction which seeks to infringe the substance of that right under Article 30(1) would to that extent be void. This, how- ever, is not to say that it is not open to the State to impose regulations upon the .exercise of this right ...... Regulation made in the true interests of efficiency of instruction, discip line, health, sanitation, morality, public order and the like may undoubtedly be imposed. Such regulations are not res- trictions on the substance of the right which is guaranteed; they secure the proper functioning of the institution, in matters educational".

This Court refused to uphold the order of the Government on the ground, that this was only a regulatory measure. The Court pointed out that the regulation in order to be valid must satisfy ·a dual test, namely, (1) that it should be reasonable, (2) that it should be purely regulative of the educational character of the institution so as to make the institution an effective vehicle of education for the minority com munity. This Court observed thus;-

I l •

"The right established by Article 30(1) is a fundamen tal right declared in terms absolute. Unlike the fundamen tal freedoms guaranteed by Article 19, it is not subject to reasonable restrictions. It is intended to be a real right for the protection of the minorities in the matter of setti~g up of ~ucational institutions of their own choice. The right is intended to be effective and is not to be whittled down by so called regulative measures conceived in the interest institution, but of the minority educational not of the public or the nation as a whole. If every order which while maintaining the formal character of a minorny institu- 1ion destroys the power of administration is held justifiable

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948

SUPREME COURT REPORTS

(1980] 2 S.C.R.

because it is in the public or national interest, though not in its interest as an educational institution, the right guaranteed by Article 30(1) will be put a "teasing illusion", a promise of unreality. Regulations which may lawfully be imposed either b]' legislative or executive action as a condition of re cei<ving grant or of recognition must be directed to making the institution while retaining its character as a minority institution effective as an educational institution. Such re gulation must satisfy a dual test-the test of reasonableness, and the test that it is regulative of the educational character of the institution and is conducive to making the institution an effective vehicle of education for the minority community or other persons who resort to it."

On an examination of the provisions of the impugned Act in the instant case, it is manifest that the Act contains provisions harsher and more offensive than the order passed by the Government of Bombay in the Bombay case (supra) referred to above.

In the case of Rev. Father W. Proost & Ors. v. The State of Bihar and Ors.(') Hidayatullah, C. J. speaking for the Court observed as foUows :-

"In our opinion, the width of Article 30(1) cannot be cut down by introducing in it consideration on which Article 29(1) is based. The latter article is a general protection is given to minorities to conserve their language, script or culture. The former is a special right to minorities to estab lish educat.ional institutions of their choice. This choice is not limited to institution seeking to conserve language, script or culture and the choice is not taken away if the minority community having established an educational institution of its choice also admits members of other communities. That is a circumstance irrelevant for the application of Article 30 ( 1) sine~, no such limitation is expressed and none can be implied. The two Article create two separate rights, although it is possible that they may meet in a given case."

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The extent to which the State could interfere with the administra tive autonomy of the minority institutions in view of the guarantee contained in Article 30 (1) of the Constitution was again fully dis cussed and explained in the case of State of Kera/a etc. v. Very Rev. H Mother Provincial etc. (2) .. JP. this case the Court was considering the

(I) [1969] 2 S.C.R. 73. (1) [1971] I S.C.R. 734.

ALL SAINTS HIGH SCHOOL v. GOVT. OF A.P. (Fazal Ali, J.) 949

constitutionality of certain provisions of the Kerala University Act, 1969 which was passed with a view to reorganise the University of Kerala and establish a teaching, residential and affiliating University of private Colleges including institutions founded by the minority community. The Court was concerned only with some of the pro visions of the aforesaid Act and struck down the offending provi sions as amounting to a blatant interference with the rights guaranteed to the minorities under Article 30(1) of the Constitution. Before analysing the facts of that case, I might indicate that in the instant case it is not disputed by the parties that all the appellants are minority institutions and had a governing body of their own. It is also not disputed that apart from the Christians others were also admitted to the institutions and received education. Even some of the members In the background of these of the staff were also non-Christians. to facts. above applies to the present appeals. While explaining the scope and ambit of management or administration Hidayatullah, C.J. speak ing for the Court observe as follows : -

I have to see how far the decision of this Court referred

"Administration means 'management of the affairs' of the institution. This management must be free of control so that the founders or their nominees can mould the institution as they think fit, and in accordance with their ideas of how the interests of the rommunity in general and the institution in particular will be best served. No part of this manage ment can be taken away and vested in another body without an encroachment upon the guaranteed right.

TI1ere is, however, an exception to this and it is that the standards of education are not a part of management as such. These standards concern the b,cidy politic and are dictated by considerations of the advancement of the country and its people. Therefore, if universities establish syllabi for exa minations they must be followed, subject however to special subjects which the institutions may seek to teach, and w a certain extent the State may also regulate the conditions of employment of teachers and the health and hygiene of students. Such regulations do not bear directly upon manage- ment as such although they may indirectly affect it. Yet the right of the State to regulate educati<:m, educational stan- dards and the allied matters cannot be denied. The mino- rity institutions cannot be allowed to fall below the standards of excellence expected of educational institutions, or under the guise of exclusive right of -management, to decline to

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SUPREME COURT REPORTS

[1980] 2 s.c.R.

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follow the general pattern. While the management must be left to them, they may be compelled to keeQ. in step with otl1ers".

These observations, therefore, establish three important tests which would determine whether or not the action of the Government amounts to interference with the management of the institution ( 1) In order that the management of the institution is free from outside control, the founders must be permitted to mould the institution as they think fit; (2) no part of the management could be taken away by the Gov- ernment and vested in anoilier body withont an encroachment upon the guaranteed right enshrined in Article 30(1) of the Constitution; (3) There is however an exception W this general rule which is that the Government or the University can adopt regulatory measures in order to improve the educational standards which concern the body politic and are dictated by considerations of the advancement of the country and its people, so that the managing institution may not under the guise of autonomy or exclusive right of management be allowed to fall below the standard of_ excellence that is required of educational institutions.

Having laid down these tests the Court proceeded to analyse some of the offending sections of the Kerala Act and came to the conclusion that according to some of the sections the governing body set up by education society was to consist of 11 members and the Managing Council of 21 members. 11 members of the government body were (i) the principal of the private college, (ii) the manager of the private college, (iii) a person nominated by the University in accordance with the provisions in that behalf contained in the statute (iv) a person nominated by the Government and ( v) a person elected in accordance with the procedure laid down on the Act. Sub-section (2) had the effect of making these bodies into bodies corporated having perpetual succession and a common seal. Sub-section ( 6) laid down the powers and functions of the governing body, the removal of members thereof and the procedure to be followed by it, including the delegation of its powers to persons prescribed by the Statutes. Sub-section (7) laid down that the decision in either of the two bodies shall be taken at the meetings on the basis of simple majority of the memb.,_rs present and voting. Thus, if these provisions were to apply to the minority insti tutions, it is manifest that it would amount to a direct interference in the internal management of the institution and would tantamount to the institution surrendering its educational personality. In other words, the governing body appointed by the University would replace the governing body of the founders of the institutipils and thus the founders

if

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ALL SAINTS HIGH SCHOOL v. GOVT. OF A.P. (Fazal Ali, l.)

951

would have no right to administer the institution iu any way they like. A Adverting to this aspect of the matter Hidayatullah, C.J. observed as follows:-

institution.

"These sections were partly declared ultra vires of Article 30(1) by the High Court as they took away from the foun ders the right to administer their own It is obvious that after the election of the governing body or the managing council the founders or even the community, has no band in the administration. The two bodies are vested with the complete administration Of the institutions. These bodies have a legal personality distinct from the educational agency or the corporate management. They are not ans_wer- able to the founders iu the matter of administration ..... .

The Constituti()n contemplates the administration to be in the bands of the particular community. However desirable it might be to associate nominated members of the kind men- tioned in ss. 48 and 49 with other members pf the govern ing body or the managing council nominees, it is obvious that their vr0ice must play a considerable part in management. Situations might be conceived when they may have a pr~­ In any event, the administration goes td ponderating voice. a distinct corporate body which is in no way answerable to the educational agency or the corporate management. The founders have no say in the selection of the members nomi nated by them. It is, therefore, clear that by the force of sub- sections (2), (4) and (6) of sections 48 and 49 the minority community loses the right to administer the institution it has founded. Sub-section (5) also compels the governing body or the managing council to follow the mandates of the University in the administration of the institution."

B

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Their Lordships then proceeded to consider the vires of sub-sec tions (2) and ( 4) of section 56 which laid down the conditions of service of the teachers of private colleges. Sub-section (2) provided !hat no teacher of a private college could be dismissed, reduced in rank by the governing body or managing council witbont the previous sanction rOf the Vice Chancellor or {llaced under suspen- sion by the governing body or managing council for a continuon~ period exceeding fifteen days without such previous sanction. Further sub-section ( 4) provided that a teacher against whom disciplinary action is taken shall have a right of appeal to the Syndicate, and the H -Syndicate shall have, power to order reinstatement of the teacher in cases of wrongful removal or dismissal and to order such other reme-

removed or G

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952

;;UPREME COURT REPORTS

(1980] 2 S.C.R.

dial ~easures as it deems fit, and the !jOVerning body or managing council, as the case may be, shall comply with the order. It is thus obvious that in view of the provisions of sub-sections (2) and (4) of section 56 the managing body bad no discretion in the matter and the right of the management was completely taken away and vested In the instant case, although the Act does not in some other body. at all provide any rules or regulations by which the conditions of service of the teachers are to be governed yet it prohibits dismissal or removal of teachers without prior sanction of a competent authority to be declared by the Government. Similarly, it provides for an appeal to an appellate authority without laying down any guidelines and no right of appeal is given to the management. These provisions are con tained in section 3, sub-sections (2), (3) and (4) and section 4. This Court also considered the effect of section 58 of the Kerala Act by which a teacher of a college who was elected as a member of the Legislative Assembly or Parliament could not be debarred on bis election, but would be allowed to continue. Upholding the decision of the High Court and commenting on the unconstitutionality of section 5 6 sub-sec tions (2) and ( 4) and section 58 this.Court observed as follows : -

"These provisions clearly take away the disciplinary action from the governing body and the managing council and confer it upon the University."

''This enables political parties to come into the picture of the administration of minority institutions which may not like this interference. When this is coupled with the choice of nominated members left to Government and the Univer sity by sub-s. 1 ( d) of ss. 4 8 and 49 it is clear that there is much room for interference by persons other than those in whom the founding community would have confidence."

In the end while making it clear that there was no element of mala fides in the Act passed by the Legislature, the provisions of the Act unfortunately robbed the founders of their right of administration and In this were, therefore, hit by Article 30 ( 1) of connection, the Court observed as follows : -

the Constitution.

"We have no doubt that the provisions of the Act were made bona fide and in the interest of education but un fortunately they do affect the administration of these insti the tutions and rob the founders of Constitution desires should be The provisions, if salutary, cannot stand in the face of the constitu even tional guaravtees".

that theirs.

right which

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ALL SAINTS HIGH SCHOOL V. GOVT. OF A.P. (Faz.al Ali, J.) 95 3

In the case of D.A.V. College etc. v. State of Punjab & Ors. (') this Court was considering the provisions of Chapter V Clauses 2(1)(a), 17 and 18 read with clauses 1(2) and (3). Clause 2(1) (a) pro vided that a college applying for admission to the privileges of the University had to send a letter of application to the Registrar and would have to satisfy the Senate ( 1) that the College shall have a regularly constituted governing body consisting of not more than 20 persons approved by the Senate (2) that among those persons there should be two representatives of the University and the Principal of the College Exofficio. Clause 17 provided that any staff initially ap pointed shall be approved by the Vice-Chancellor and any subsequent changes made must be reported to the University for approval. It was also provided that in the case of training institutions the teacher pupil ratio shall not be less than 1: 12. The constitutional validity of these provisions was challenged before this Court on the ground that it violated Article 30( 1) of the Constitution because the College was a minority institution being a College established by the Arya Samaj. On a consideration of these provisions, this Court upheld the conten tion of the appellants and observed thus:-

to administer

interferes with

"It will be observed that under clause 1 (3) if the peti tioners do not comply with the requirements under 1 (a) their affiliation is liable to be withdrawn. Similarly it is stated the petitioners that clause 1 7 also right their College as the appointment of all the staff has to be approved by the Vice-Chancellor and that subsequent changes will also have to be reported to, the University for Vice-Chancellor's approval. We have already held that the Petitioners institutions are established by a reli gions minority and therefore under Article 30 this minority has right to administer their educational institutions according to their choice. Clause 2(a)(a) and 17 of Chapter Vin our view certainly interfere with that right."

The matter was again fully considered by this Court by a Bench consisting of 9 Judges in all its aspects. In the case of The Ahmedabad St. Xaviers College Society & Anr. etc. v. State of Gujarat & Anr. (') and this is the leading case on the subject. This case has been relied on by counsel for both the parties in support of their respective oo'nten fons. In this case it appears that certain provisions of the Gujarat University Act 1949 were challenged. Section 5 of the Act provided

(l) [1971] Supp. S.C.R. 688. (2) [1975] I S.C.R. 173.

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SUPREME COURT REPORTS

[19801 2 s.c.R.

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that no educational institution situated within the University cou1d be associated in any way with or seek admission to any privilege of any other University save and except with the sanction of the State Govern ment. Section 33A(l)(a) of the Act provided that every college other than a Government college or a college maintained by the Government shall be under the management of a governing ~ody which includes among others, the Principal of the College, a representative of the University nominated by the Vice-Chancellor and (ii) in the case of selection of a member of the teaching staff of the College a selection committee would be constituted consisting of the Principal and a rep resentative of the University nominated by the Vice-Chancellor. Sub section (3) of the section provided that the provisions of section 33A ( 1) shall be deemed to be a condition of affiliation of every College referred to in that sub-section. In other words, according to this pro vision, even the Colleges which were minority institutions would fall within the mischief of the section. Section 39 provided that within the University area all post-graduate instruction, teaching and training shall be condncted by the University or by such affiliated College or insti tution and in such subjects as may be prescribed by statutes. Section 40(1) enacted that Court of the University may determine that all instructions, teaching and training in the courses of studies in respect of which the University was to hold examinatipn shall be conducted by the University and shall be imparted by the teachers of the Uni versity. Section 41 (1) stated that all Colleges within the University area which were admitted to the privilege of the University under section 5(3) and all Colleges within the said area which may here after be affiliated to the University shall be constituent colleges of the University, and their relations with the University would be govern ed by statutes made by the University in that behalf.

As regards the conditions of service of the teachers appointed by the University section 51A(a) (b) enacts that no member of the teaching or other academic and non teaching staff of an affiliated college shall be dismissed, or removed or reduced in rank except after an enquiry in accordance with the procedure prescribed in clause (a) and the penalty to be inflicted on him is to be approved by the Vice Chancellor or any other officer of the University authorised by the Vice-Chancellor in this behalf. Sectip'n 52A( 1) provided that any dispute between the governing body and any member of the teaching staff shall on a request of the governing body or pf the member con cerned be referred to a Tribunal or arbitration consisting of one member nominated by the governing body of the college, one member nominated by the membe~r concerned and an umpire appointed by In view of the provisions referred to above, the Vice-Chancellor.

ALL SAINTS HIGH SCHOOL v. GOVT. OF A.P. (Fazal Ali, J.) 955

s

the question that fell for consideration in that case was whether these provisions interfere with the internal management of the minority institutions so as to compel them to surrender all their administrative powers to the University or the Vice-Chancellor or the officers nomi• na!OO by the Vice-Chancellor. There can be no doubt that if these provisions are construed against the background of the objective of the Act the idea was not lo leave any controlling voice either in the courses of studies or in the matter of disciplinary action against the staff and the teacher in the management of the institution but to take over the entire management by the University authorities giving nominal representation to the management of the institntion.

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Before we analyse the decision in St. Xaviers case (supra) we must note that as far back as 1959 in Re Kerala Education Bill this Court had clearly pointed out that while the minority institution had no constitutional right to be affiliated to any college or University the right to .be affiliated flowed from the language of Article 30( 1) of the Constitution and the University concerned could not either refuse affiliation or impose such conditions which may resnlt in complete surrendering of the management of the minority institution. Thus, the central question to be decided. in Ibis case was whether by virtue of the provisions of the Act set out above, Article 30( 1) had been violated and if so to what extent.

So far as the question of afliliation was concerned the entire courl held that although there was no fundamental right ta affiliation but recognition or affiliation was necessary for meaningful exercise of the right to establish and administer educational institution conferred on the minority institutions under Article 30(1) of the Constitution. In this connection, the Court observed as follows : -

"The consistent view of this Court has been that there is no fundamental right of a minority institution of affiliation. An explanation has ocen put upon that statement of law. It is that affillation must be a real and meaningful exercise for minority institutions in the matter of imparting general secular education. Any law which provides for affiliation on abridgement of the right of terms which will linguistic and religious minorites to administer and establish educational institutions of their choice will offend Article 30( 1). The educational institutions set up by minorities will be robbed of their utility if boys and girls cannot be trained in such institutions for University degrees. Minori- ,ties will virtually lose their right to equip their children for ordinary careers if affiliation be on tenns which would

inv91ve

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SUPREME COURT REPORTS

[ 1980] 2 S.C.R.

make them surrender and lose their rights to establish and their choice nnder institutions of administer educational Article 30 ............................ .. The institution is not only ineffective but also unreal unless ·such institution is affiliated to a University for the purpose of .conferment of degrees on students".

establishment of a minority

Relying on the previous decision in the case of State of Kera/a etc. the v. Very Rev. Mother Provincial etc. (supra) Ray, C.J. reiterated principles laid down by the previous case and observed as follows : -

regulations are not only

"W11en minority applies for affiliation, it agrees to follow the uniform courses of study. Affiliation is regulating the educational character and content of the minority institu tions. These reasonable in the interest pf general secular education but also conduce to · the improvement in the stature and strength of the minority institutions.. .. .. . . .. . . . . . . .. .. . .. . .. .. . ..... ........................................ Affiliation mainly pertains to the academic and educational character of the institution. Therefore, measures which will regulate the courses of study, the qualifications and appointment of teachers, the conditions of employment of teachers; the health and hygiene of students, facilities for in matters laboratories are all comprised libraries and germane to affiliation of minority institutions. These regula tory measures for affiliation are tor uniformity, efficiency and excellence in educational courses and do not violate any fundamental right of the minority institutions under Article 30".

Thus, to a limited extent affiliation of the minority institution to regulatory the University or Colleges concerned was held to be a measures provided it was aimed at improving the educational standards 'lllld laying down the conditions of employment of the teachers. This Court repeated that the minority institutions have the right to adminis ter the institution and shorn of some checks and balances in the shape of regulatory measures the right to administer cannot be tampered with.

In this connection, Ray, C.J. observed as follows:-

"The minority institutions have

the right to administer institutions. The right implies the obligation and duty of the minority institutions to render the very best to the stu dents. Iu the rights of administration, checks and balances

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ALL SAINTS IDGH SCHOOL v. GOVT. OF A.P. (Fazal Ali,!.) 957

in the shape of regulatory measures are required to ensure the appointment of good teachers and their conditions of service. The right to administer is to be tempered with regulatory measures to facilitate smooth administration. The best administration will reveal no trace or colour of mino exemplary rity. A minority institution eclectism in the administration of the institution ....... . Regulations which will serve the interest of the students, regulations which will serve the interests of teachers the in good administration . are of paramount Regulations in the interest of effciency of teachers, discip line and fairness in administration are necessary for pre serving harmony among affiliated institutions".

should shine in

importance

As regards the provision of the Act concerned by which the minority institution became a constituent College this was expressly the Court struck down by thb Court where Ray, C.J. speaking for observed as follows : -

"Once an alfi!iated coQege becomes a constituent col lege within the meaning of section 41 of the Act pursuant to a declaration under section 40 of the Act it becomes integrated to the university. A constituent college does not retain its former individual character any longer. The m•nority character of the college is lost. Minority institu- tions become part and parcel of the university. The result is that section 40 of the Act cannot have any compulsory application to minority institutions because it will take away their fundamental right to administer the educational institu- tions of their choice".

Explaning w.hat the concomitants of an autonomy in administra

tion meant Ray, CJ. observed as follows : -

"Autonomy in administration means

right to administer the effectively and to manage and conduct the affairs of institutions. The distinction is between a restriction on the the right of administration and a regulation prescribing is manner of administration. The right of administration day to day administration. The choice in the personnel of management is a part of the administration. The university will always have a right to see that there is no mal-adntinis If there is mal-administration, the nniversity will tration. take steps to cnre the same. There may be control and <:heck on administration in order to find out whether the

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958

SUPREME COURT REPORTS

(1980] 2 s.c.R.

minority institutions are engaged in activities which are not conducive to the interest of the minority or to the require- ments of the teachers and the students ................ . The provisions contained in section 33A(l) (a) of the Act have the effect of displacing the management and entrusting it to a dillerent agency. The autonomy in administration is lost. New elements in the shape of representatives of different type are brought in. The calm waters of an insti tution will not only be disturbed but also mixed. These provisions in section 33A(l)(a) cannot therefore apply to minority institution".

In other words,

It follows from what had been held in the aforesaid case was that there should be no interference in the right of day to day adminis tration of the institution of in the choice ·of the personality of the managing committee or governing body of the institution. This Court struck down section 33A(l) (a) of the Gujarat Act on the ground that the management of the college was completely displaced and was substituted by the university authorities. the posi tion appears to be that although the university to which the minority institution was affiliated may exercise supervision in so far as the syllabi or the courses of studies are concerned, it cannot be allowed to be associated with the managing committee or the governing body of the institution so as to have a controlling voice in the matters at issue and thereby destroy the very administrative autonomy of the minority institution. This appears to be the main reason why Ray, C.J. was of the opinion that section 33A(l)(a) was violative of Article 30 (1), and, therefore, not applicable to the minority institu tions. The Court then dealt with the provisions of sections 5 lA and 52A of the Gujarat Act. Under section 51A no member of the teaching, other academic and non-teaching staff of an affiliated col lege should be dismissed, removed or reduced in rank except after an enquiry in which he has been informed of the charges and giwn a reasonable opportunity of being heard and until he had been given a reasonable opportunity of making a representation on any such penalty proposed to be inflicted on him and the penal! y to be inflicted on him was to be approved by the Vice-Chancellor or any officer o~ the University authorised by him. This Court held that this is a blanket power given to the Vice-Chancellor without any guidance, and pbserved as follows :

"The approval of the Vice-Chancellor may be intended to be a check on the administration. The provision con tained in section 51A, clause (b) of the Act cannot be said to be a permissive regulatory measure inasmuch as it confers

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ALL SAINTS HIGH SCHOOL v. GOVT. OF A.P. (Faza/ Ali,!.)

959

arbitrary power on the Vice-Chancellor to take oaway the right of administration of the minority institutions, Section _?IA of the Act cannot, therefore, apply to minority insti tutions."

•

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Dealing with the provisions contained in Section 52A of ·the Gujarat Act which contemplated a reference of any dispute between the governing body and any member of the teaching or oacademic and non-teaching staff of an affiliated college which was connected with the conditions of service of such member to a.Tribunal of Arbitration consisting of one member nominated by the governing body of the college, one member nominated by the member concerned and an Umpire appointed by the Vice;-Chancellor, the learned Chief Justice was of the opinion that the introduction of such an arbitration to a Tribunal would start a spate of fruitless litigation and was likely to impair the excellence and efficiency maintained by the educational In this connection, the learned Chief Justice institution concerned. observed as follows : -

"These references to arbitration will introduce an area institution. of litigious controversy inside the educational The atmosphere of the institution will be vitiated by such proceedings. The governing body has its own disciplinary authority. The governing body has its domestic jurisdic tion. This jurisdiction will be displaced. A new jurisdic tion will be created in administration. The provisions con tained in section 52A of the Act cannot, therefore, apply to minority institution."

Jaganmohan Reddy, J. agreeing with the majority judgment deli vered by the Hon'ble Chief Justice endorsed his conclusions regarding the constitutional validity to sections 40, 41, 33A(l)(a), 33A(l)(b), 51A and 52A of the Act and observed thus : -

the Chief "We agree with the Judgment of Hon'ble Justice just pronounced and with his conclusions that sec tions 40, 41, 33A(l) (a), 33A(l) (b), 51A and 52A of the Act violate the fundamental rights of minorities and cannot, therefore, apply to the institutions established and adminis tered by them."

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Dwelling on

the importance of the fundamental right enshrined in Article 30, the learned Judge held that the right under Article 30 7-138 SCJ/80

H

960

SUPREME COURT REPORTS

(1980) 2 S.C.R.

A

could not be exercised in vacuo, and in this connection observed as follows : ·-·

B

c

D

E

F

G

"The right under Article 30 cannot be exercised

in right to refer to affiliation or vacuo. Nor would it be recognition as privileges granted by the State. In a demo cratic system of Government with emphasis on edncation and enlightenment of its citizens, there must be elements which give protection to them. The meaningful exercise of the right under Article 30(1) would and must necessarily involve recognition of the secular education imparted by the minority institutions without which the right will be a mere husk. This Court has so far consistently struck down all attempts to make affiliation or recognition on terms tenta mount to surrender of its rights under Article 30(1) as abridging or mking away those rights. Again as without affiliation there can be no meaningful exercise of the right under Article 30 (l), the affiliation to be given ~hould be consistent with that right, nor can it indirectly try to achieve what it cannot directly do."

Similar view was taken by Khanna, J. who also held that manage ment of a minority institution should be kept free from governmental or ether interference because the worrls "of their choice" appear ing in Article 30 have special significance and would actually lose their value and utility if too much interference or unnecessary curbs are placed in the administration of the affairs of the minority institution. The learned Judge observed thus :

"Administration connotes management of the affairs of the institution. The management must be free of control so that the founders or their nominees can mould the insti tution as they think fit and in accordance with their ideas of how the interest of the community in general and the inslitution in particular will be best served. The words "of their choice" qualify the educational institutions estab lished and administered by the minorities need not be of some particular class; the minorities have the right anrl such educational freedom to establish and administer institutions as they choose".

Similarly, explaining the scope and ambit of Articles 29 and 30

the learned Judge observed as follows :

H

"The broad approach has been to see that nothing is done to impair the rights of the minorities in the matter of their

ALL SAINTS HIGH SCHOOL v. GOVT. OF A.P. (Fazal Ali, !.) 961

to

educational institutions and that the width and scope of the provisions of the Constitution dealing with those rights are not circumscribed. The principle which can be dis- cerned in the various decisions of this Court is that !he Catholic approach which the drafting of the led provisions relating to minority rights should not be set ~ naught by narrow judicial interpretation. The minc> rities are as much children of the soil as the ma1ority and the approach has been to ensure that nothing should •be done as might deprive the minorities of a sense of belonging, of a feeling of security, of a consciousness of equality and of the awareness that the. conservation of their religion, culture, language and script as also the pro fundamental tection of their educational right enshrined in the Constitution. The same generous, liberal and sympathetic approach should weigh with the courts in construing Articles 29 and 30 as marked the deliberations of the Constitution-makers in drafting these Articles and making fundamental rights".

institutions is a

them part of

the

The learned Judge held that although it was permissible the authority concerned to prescribe regulations but regulations should not impinge upon the right conferred on the minority insti- ·tutions under Article 30(1). A just balance had to be struck between the two objectives, namely, passing of regulatory measures and preserving the fundamental rights of the minority institutions. The learned Judge observed as follows : -

such

for

"It is, therefore, permissible for the authority concerned to prescribe regulations which must be complied with before an institution can seek and retain affiliation and .recognition. Question can arise whether there is any limi tation on the prescription of regulations for minority edu ·cational institutions. So f,ar as this aspect is concerned, the authority prescribing the regulations must bear in mind right that the Constitution has guaranteed a fundamental their to the minorities for establishing and administering educational institutions. Regulations made by the autho rity concerned should not impinge upon that right. Balance bas, therefore, to be kept between the two objectives, that of ensuring the standard of excellence of institution and that of preserving the right of the minorities to estab- 1ish and administer their educational institutions. Regula-

the

A,

B

c

D

E

F

.

G

B

962

SUPREME COURT REPORTS

[1980] 2 s.c.R.

A

8

tions which embrance and reconcile the two objectives can be considered to be reasonable."

The learned Judge further held that any law which inter£eres with the minorities choice of a governing body would be violative of Article 3 0 (1) and observed thus : -

"In the light of the above principles, it can be stated that a law which interferes with the minorities choice of a governing body or management council would be violative of the right guaranteed by Article 30(1) ."

. c

Criticising the constitutional validity of Section 52A of the Gujarat Act Khanna, J. shared the view taken by Ray, C.J. which has been referred to above. The learned Judge observed as follows : -

is the giving of

"The provisions of section 52A would thus not as a spoke in the wheel of effective administration of an educational It may also be stated that there is nothing institution. for objectionable to selecting the method of arbitration settling major disputes connected with conditions of ser vice of staff of educational institutions. It may indeed be a is objectionable, apart from what desideratum. What has been mentioned above, the power to the Vice.Chancellor to nominate the Umpire. Nor- mally in such disputes there would be hardly any agreement between the arbitrator nominated by the govern ing body of the institution and the one nominated by the concerned member of the staff. The result would be that the power would vest for all intents and purposes the nominee of the Vice-Chancelloc to decide all disputes between the governing body and the member of the staff The connected with the latter's conditions of service. . governing body would thus be hardly in a position to take any effective disciplinary action against a member of the staff. This must cause an inroad in the right of the govern ing body to administer the institution. Section 52A should, therefore, be held to be violative of Article 30 ( 1) so far as minority educational institutions are concerned."

in

. D

E

F

G

Similarly, while striking down sections 40 and 41 of the Gujarat Act, the learned Judge found that the affiliated colleges would become constituent colleges as a result of the provisions of these sections and 11eld that these provisions could not apply to the minority institutions. In this connection, Khanna, J. observed as follows : -

"A provision which makes it imperative that teaching in under-graduate courses can be conducted only by the Uni-

B

··•

1

•

ALL SAINTS HIGH SCHOOL v. GOVT. OF A.P. (Fazal Ali, J.)

963

the versify and can be imparted only by the teachers of University plainly violates the rights of minorities to estab lish and administer their educational institution. Such ·a provision must consequently be held qua minority institu tions to resqlt in contravention of Article 30(1). I would, therefore, strike down section 40 so far as minority edn cational institutions are concerned as being violative of Article 30(1)".

·

Mathew, J. while striking down the constitutional validity of

lieCtion 33A(l) of the Gujarat Act observed as follows : -

"The heart of the matter is that no educational institution established by a religious or linguistic ·minority can claim total immunity from regulations by the legislature or the uni versity if it wants affiliation or recognition; but the charac ter of the permissible regulations must depend upon their purpose ........ In every case, when the reasonableness of a regulation comes up for consideration before the court, the the question to be asked and answered regulation is calculated to subserve or will in effect sub serve the purpose of recognition or affiliation, namely, the excellence of the institution as a vehicle for general secular education to the minority community and to other persons who report to it. The question whether a regulation is in the general interest of the public has no relevance, if it does not advance the excellence of the institution as a vehicle for general secular education as, ex-hypothesi, the only permissible regulations are those which secure the effectiveness of the purpose of the facility, namely, the excel lence of the educational institutions in their educational standards."

is whet11er

respect of

Similarly, the learned Judge took strong exception to the pro visions of section 33A which required that the college should have a governing body which should include persons other than those who are members of the society of Jesus, struck provisions of section 33A and observed as follows : -

•

"We think that the provisions of sub-sections (l)(a) and (l) (b) of section 33A abridge the right of !he religious minority to administer edncational institutions of their choice. The requirement that the college shollld have a governing body which shall include persons other than those who are members of the governing body of the society of Jesus

A

B

c . J

D

E

F

,

G

H

A

B

c

D

E

F

G

ft

964

SUPREME COURT REPORTS

(1980] 2 S.C.lt.

would take away the management of the college from the governing body constituted by the Society of Jesus and vest it in a different body. The right to administer the educational institution established by a religious minority is It is in the governing body of the Society of vested in it. Jesus that the the college has vested the right to >!dminister the same. The requirement that the college should have a governing body including persons other than those who constitute the governing body of the Society of Jesus has the effect of divesting that body of its exclusive right to manage the educational institution ....... .

religious minority which established

The learned Judge further pointed out that under the guise of preventing ma1-administration the right of the governing body to manage the affairs of the minority institution should not be taken away and in the same token observed as follows : -

-

it has

is right

The effect of the provision

founded. the affairs' of

"Under the guise of preventingi mal-administration, the right of the governing body of the college constituted by the re ligious minority to administer the institution cannot be taken that away. the reli gious minority virtually loses its to administer "Administration" means the institution This the 'management of management must be that free of control so the founders or their nominees can mould institution the according to their way of thinking and in accordance with their idea of how the interests of the community in general and the institution in particular will be best served. No part of this management can be taken away and vested in another body without an encroachment upon the guaranteed right."

in~titution.

Similarly, analysing various provisions of the Gujarat Act like sections 51A(l) (a) and 51A(l)(b) etc. the learned Judge observed as follows : -

"The relationship between the management and a teacher is that of an employer and employee and it passes one's understanding why the management cannot terminate the servicei; of a teacher on the basis of the contrac~ of em ployment. Of course, it is open to the State in the exer cise of its regulatory power to require that before the ser vices of a teacher are terminated he should he given an opportunity of being heard in his defence. But to requir<'

'

'

). .

•

8'0~ - 62-. 71"?

ALL SAINTS IIlGH SCHOOL v. GOVT. OF A.P. (Fazal Ali,].) 965

teacher after an that for terminating the services of a inquiry has been conducted, the management should have the approval of an outside agency like the Vice-Chancellor or of his nominee would be an abridgement of its right to administer the educational institution. No guide lines are provided by the legislature to the Vice-Chancellor for the exercise of his power. The fact that the power can be delegated by the Vice-Chancellor to any officer of the university means that any petty officer to whom the power is delegated can exercise a general power of veto. Theri:i is no obligation under the sub-sections (l)(b) and (2)(b) that the Vice-Chancellor or his nominee should give any reason for disapproval. As we said a blanket power without any guideline to disapprove the action of the management would certainly encroach upon the right of the management to dismiss or terminate the services of a teacher after an enquiry."

Beg, J. speaking in the same strain observed as follows :

"It is true that, if the object of an enactment is to compel a minority institution even indirectly, to give up t.he exercise of its fundamental rights, the provisions which have this effect will be void or inoperative against the minority insti tution. The price of affiliation cannot be a total abandon ment of the right to establish and administer a minority institution conferred by Article 30(1) of the Constitution . . This aspect of the matter, therefore, raises the question whether any of the provisions of the Act are intended to have that effect upon a minority institution. Even if that intention is not manifest from the express terms of statutory provisions, the provisions may be vitiated if that is their necessary consequence or effect."

Even Dwivedi, J. who had sounded a discorded note held that so far as section 33A(l) (a) was concerned it was obnoxious to Article 30 (I ) of the Constitution.

In the case of Gandhi Faizeam College Shahajahanpur v. Univer sity of Agra and Anr.(I) the majority judgment consisting of V. R. Krishna Iyer and A. C. Gupta, JJ. observed as follows :-

restriction clamped down by "What is the core of the Statute 14-A ? What is the conscience and tongue of Arti- cle 30? If the former is in,~ongruous with the latter, it

(1) [1975] 3 S.C.R. 810.

A

B

c

D

E

G

H

A

B

c

D

E

F

G

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966

SUPREME COURT REPORTS

[1980] 2 S.C.R.

withers as void; otherwise, it prevails and binds. That is the crux of the contro¥ersy."

that

thrust of the case is

regulations are "The they desirable, necessary and constitutional but, when operate on the 'administration' part of the right, must be confined to chiselling into shape, not cutting down out of shape, the individual personality of the minority."

real

Mathew, J. who gave a dissenting opinion and whose opinion fol lows the principles laid down by t~ Court in St. Xavier's case (supra) observed as follows : -

the body

to "The determination of the composition of administer the educational institution established by a reli- gious minority must be left to the ntlnority as that is the core of the right to ailminister. Regulations to prevent mal administration by that body are permissible. As the right to determine the composition of the body which will ad ntlnister the educational institution is the very essence of the right to administer guaranteed to the religious or linguistic minority nnder Article 30(1), any interference in that area by an outside authority cannot be anything but an abri<)ge rnent of that right. The religious or linguistic mino1ity must be given the freedom the agency through to constitute which it proposes to administer the educational institution established by it as that is what Article 30(1) guarantees. The right to shape its creation is one thing : the right to regulate the manner in which it would function after it has come into being is another. Regulations are pennissible to prevent rnal-adntlnistration but they can only relate to the manner of administration after the body which is to adminis- ter has come into being."

The entire case law as fully reviewed by this Court recently in the case of Lilly Kurian v. Sr. Lewlna & Ors.('). Jn this case, Sen, J. speaking for the court and after a deep dischotomy and adroit analysis of St. Xavier's case (supra) and the case• which preceded that case summed up the law thus : -

"An analysis of the judgments in St. Xavier. Coll<ge's case (supra) clearly shows that seven out of nine Judge,, held that the provisions contained in clauses (b) of sub-sections ( 1) and (2) of section SIA of the Act were not applicable to an educational institution established and managed by

(1) [1979] l S.C.R. 820.

. r _ _,.,.,

' f

•

r I

ALL SAINTS HIGH SCHOOL v. GOVT. OF A.P. (Fazal Ali, !.) 967

the religious or linguistic minority as they interfere with diSciplinary control• of the management over the staff of its educational institutions. The reasons given by the majority were that the power of the management to terminate the ser vices of any members of the teaching or other academic and non-academic staff was based on the relationship between an employer and his employees and no encroachment could be made on this right to dispense with their services under the contract of employment, which was an integral part of the right to administer, and that these provisions conferred on the Vic~hancellor or any other officer of the Uni versity authorised by him, uncanalised, unguided and un limited power to veto the actions of the management."

"The power of appeal conferred on the Vice-Chancellor under Ordinance 33 ( 4) is not only a grave encroachment -0n the institution's right to enforce and ensure discipline in Hs administrative affairs but it is uncanalised an,J nnguided in the sense that no restrictions are placed on the exercise of the power. The extent of the appellate power of the Vice-Chancellor is not defined; and, indeed, his powers arn unlimited. The grounds on which the Vice-Chancel lor can interfere in such appeals are also not defined. He may not only set aside an order of dismissal of a teacher and order his reinstatement, but may also interfere with any of the punishments enumerated in items (ii) (v) of to even Ordinance 33(2); that is to· say, he can interfere against the infliction of minor punishments. In the absence of any guidelines, it cannot be held that the power of the Vice-Chancellor under Ordinance 33 ( 4) was merely a check on maladministration.

As laid down by the majority in St. Xavfrrs College's case (supra) such a blanket power directly interferes with the disciplinary control of the managing body of a minority educational institution over its teachers".

Thus, on an exhasutive analysis of the authorities of this Court and the views taken by it from time to time during the last two decades on various aspects, shades and colours, built-in safeguards, guarantees, scope and ambit of the fundamental right enshrined in Atticles 30(1), the principles and propositions that emerged may be summarised as follows : -

A

B

c

D

E

F

G

H

1. 1hat from the very language of Article 30 (1) it is the

clear that it enshrines a fundamental

right of

,.. \

968

SUP'l.EME COURT REPORTS

[l 980l 2 s.c.a.

A

B

c

D

E

F

G

H

minority institutions to manage and administer their educational institutions which is completely in conso nance with the secular nature of our democracy and the Directives contained in the Constitution itself.

2. That although unlike Article 19 the right conferred on the minorities is absolute, unfettered and unconditional but this does not mean that this right gives a free licence for maladministration so as to defeat the avowed object of the Article, namely, to advance excellence and perfection in the field of education.

3. While the State or any other statutory authority has no right to interfere with the internal administration or management of the minority institution, the State can certainly take regulatory measures to promote the efficiency and excellence of educational standards and issue guidelines for the purpose of ensuring the se curity of the services of the teachers or other employees of the institution.

4. At the same time, however, the State or any University authority cannot under the cover or garb of adopting regulatory measures tend to destroy the administrative autonomy of the institution or start interfering willy nilly with the core of the management of the institution w as to render the right of the administration of the management of the institution concerned nugatory or illusory. Such a blatant interference is clearly viola tive of Article 30(1) and would be wholly inapplicable to the institution concerned.

5. Although Article 30 does not speak of the conditions under which the minority educational institution can be affiliated to a college or University yet the section by its very nature implies that where an affiliation is asked for, the University concerned cannot refuse the same without sufficient reason or try to impose such the autono conditions as would completely destroy mous administration of the educational institution.

6. The induction of an outside authority however high it may be either directly or through its nominees in the the governing body or the managing committee of minority institution to conduct the affairs of the insti tution would be completely destructive of the funda mental right guaranteed by Article 30(1) of

the

•

•

f

ALL SAINTS HIGH SCHOOL V. GOVT. OF A.P. (Faz.al Ali, J.) 969

Constitution and would reduce the management to a helpless entity having no real say in the matter and thus destroy the very personality and individuality of the institution which is fully protected by Article 30 of the Constitution. Perhaps there may not be any serious objection to the introduction of high authorities like the Vice-Chancellor or his nominee in the admiuistration particularly that part of it which deals with the condi tions of service of the teachers yet such authorities should not be thrust so as to have a controlling voice in the matter and thus over-shadow the powers of the managing committee. Where educational institutions have set up a particular governing body or the manag irig committee in which all the powers vest, it is desir able that such powers should not be curbed or taken away uDJ.ess the Government is satisfied that these powers are grossly abused and if allowed to continue may reduce the efficacy or the usefulness of the insti tution.

is merely

7. It is, therefore, open to the Government or the Uni versity to frame rules and regulations governing the con ditions of service of teachers in order to secure their tenure of service and to appoint a high authority armed with sufficient guidance to see that the said rules are not violated or the members of the staff are not arbitrarily treated or innocently victimised. In such a case the pur pose is not to interfere with the internal administration to or autonomy of the institution, but it improve the excellence and efficiency of the education because a really good education can be received only 1f the tone and temper of the teachers are so framed as tc make them teach the students with devotion and dedi cation and put them above all controversy. But while setting up such an authority care must be taken to see that the said authority is not given blanket and uncana lised a.nd arbitrary powers so as to act at their own sweet will ignoring the very spirit and objective of the insti tution. It would be better if the authority concerned associates the members of the governing body or its nominee in its deliberation so as to instil confidence in the founders of the institution or the committees cons tituted by them.

B

c

I)

E

F

G

970

SUPREME COURT REPORTS

[1980] 2 s.c.R.

A

B

8. Where a minority institution is affiliated to a University the fact that it is enjoined to adopt the courses of study or the syllabi or the nature of books prescribed and tht1 holding of examination to test the ability of the students of the Institution concerned does not violate the freedom contained in Art. 30 of the Consti tution.

9. While there could be no objection in setting up a high authority to supervise the teaching staff so as to keep a strict vigilance on their work and to ensure the security of tenure for them, but the authority concerned must be provided with proper guidelines under the restricted field which they have to cover. Before coming to any decision which may be binding on the managing com mittee, the Head of the institution or the senior members of the managing committee must be associated and they should be allowed to have a positive say in the matter. In some cases the outside authorities enjoy absolute powers in taking decisions regarding the minority institutions without hearing them and these orders are binding on the institution. Such a course of action is not constitutionally permissible so far as minority insti tution is concerned because it directly interferes with the administrative autonomy of the institution. A pro vision for an appeal or revision against the order of the authority by the aggrieved member of the staff alone or the setting up of an Arbitration Tribunal is also not in St. permissible because Ray, C.J. pointed out Xaviers case (supra) that such a course of action introduces an arena of litigation and would involve the institution in unending litigation, thus imparing educa tional efficiency of the institution and create a new field for the teachers and thus draw them out of purely educational atmosphere of the minority institutions for which they had been established. In other words, notl1- ing should be done which would seek to run counter to the intentions of the founders of such imtitutions.

These are some of the important principles that have been clearly laid down by the Supreme Court in the cases discussed above. I shall now endeavour to examine the provisions of the impugned Act in the light of the principles enunciated above. I shall point out hereafter that some of the provisions of the Act arc so harsh and arbitrary and

D

E

F

·G

H

ALL SAINTS HIGH SCHOOL V. GOVT. OF A.P. (Faz.al Ali, J.) 971

confer uncanalised powers on some of the authorities appointed under the Act so as to amount to a direct and thoughtless interference with the management of the institution.

A

1"

Coming to the provisions of the Act one significant fea_ture may be noticed here. Unlike other' Acts passed by some of the States the impugned Act, while it takes within its sweep even the minority insti tutions, does not at all lay down any rules, regulations governing the conditions -of service of the teachers of the institution, nor does it pro vide any guidelines on the basis of which the rules could be m<.de, nor does it contain a mandate directing the minority institution to frame proper rules and conditions of service of its teachers. Mr. Lal Narayan Sinha appearing for the appellants submitted that this is a most serious lacnna in the Act which makes it completely violative of Article 30 of the Constitution and othec provisions read in the light of this lacuna also lose their legal sanctity.

institutions.

Section 1 ( 3) provides that th~ Act applies to all private educational In institutions that is to say including minority the instant case all the appellants are -institutions established by the Christian community. Sub-section ( 4) of section 1 says that the Act shall be deemed to have come into force on the 5th October, 1974. Sections 2 is the definition clause which defines various terms used in the Act and it is not germane for our purpose to deal with the various definitions which is more or less a foIDiality. Learned counsel appearing for the appellants has challenged the constitutional validity of sections 3, 4, 5, 6, 7, 10, 11, 12, 16 and 17 of the Act.

B

c

D

Section 3(1) of the Act may be extracted thus:-- "3 ( 1) Subject to any rule that may be made

this behalf, no teacher employed in any private educational insti tution shall be dismissed removed or reduced in rank nor shall his appointment be otherwiSe terminated. except with the prior approval of the competent authority.;

in

Provided that if any educational management, agency or institution contravenes the provisions of this sub-section, the teachers affected shall be deemed to be in service".

rules A perusal of this section would clearly reveal that while no regulating the conditions of Service of the teachers employed in private Institutions had been made, the power to do so h~s been reserved with the Government. The proviso enjoins that any contravention ot the provisions would not affect the teachers who would be deemed to be in service. It is manifest that in the absence of any rules the pro viso would have no application. Even if the proviso applies it wonld

E

F

G

H

A

B

c

0

E

F

:II

972

SUPREME COURT REPORTS

[1980] 2 s.c.R.

amount to a serious inroad on the fundamental right of the minority institutions to administer or manage their own affairs. Thus s. 3 (1) as also the proviso is clearly violative of own affairs Art. 30 i1 wholly inapplicable to the minority institutions. Serious exception has been taken by counsel for the appellants to sub-sections (2), (3) and ( 4) of section 3.

Section 3(2) may be extracted thus:--

"3 (2) Where the proposal to dismiss, remove or reduce in rank or otherwise terminate the appointment of any teacher employed in any private educational institution is communi cated to the competent authority that authority shall, if it is satisfied that there are adequate am:! reasonable grounds for such proposal, approve such dismissal, removal, reduc tion in rank or termination of appointment".

is approved by

This sub-section seeks to control the power of the institution concern ed in the matter of dismissal, removal or reduction in rank or termi nation of the appointment of any teacher employed by any private educational institution and enjoins that any action taken against the teacher will be of no consequence unless it the ~aid competent authority. It will be rather interesting to note that the any guidelines under competent authority has not been given which it can act. The Solicitor General (Mr. S. N. Kacker) sub mitted that the word 'satisfy' as nsed in the section is a strong term and regulates the powers of the competent authority and the words "adequate and reasonable grounds" contain sufficient guidelines to exclude exercise of any arbitrary power. I am, however, unable to agree with this contention. In the first place, it was the inherent and fundamental right of the institution to deal with its employees If the State or teachers and take necessary action against them. wanted to regulate the conditions of service of the teachers it should have taken care to make proper rules giving sufficient powers to the management in the manner in which it was to act. Secondly, the induction of an outside authority over the head of the institu tion and making its decision final and binding on the institution was a blatant interference with the administrative autonomy of the insti tution. Sub-section (2) does not contain any provision that while giving approval the competent anthority was to ascertain the views of the governing body or the managing committee so as to know their view point and the reason why action has been taken against a particular teacher or teachers. Similarly, the words "adequate and reasonable" are too vague and do not lay down any objective stand ard the discretion which is to be exercised by the compe tent authority whose order Will be binding on the institution. Thirdly,

judge

to

ALL SAINTS HIGH SCHOOL V. GOVT. OF A.1'. (Fazal Ali; J,) 973

r ,

the aggrieved

section 4 gives a right to

while teacher to file an appeal before the appellate authority, no such right has been given to the management to file an appeal against the order of the competent authority if it refuses to grant sanction to the order of the managing com mittee of the institution. Thus, in my opinion, sub-section (2) suffers from the vice of excessive delegation of powers and confers unde. fined, uncanalised, absolute and arbitrary powers to grant or to re fuse sanction to any action taken by the managing committee and almost reduces the institution to a helpless position. Such a provi sion, therefore, not only interferes with the right of the management of the institution but is completely destructive of the right conferred on th~ institution under Article 30(1) of the Constitution. Even the competent authority mentioned in the sub-section is merely the District Educational Officer and it appears from the record that >t is not a very high authority such as; the Director of Public Instruction or the Vice-Chancellor which may be presumed to act objectively and reasonably. Another material defect in section 3 (2) is that no time limit has been fixed by the statute within which the competent authority is to give its approval. If the competent authority either due to over work endeavours or some other reason chooses to sit over the matter for a pretty long time a stalemate would be created which will seriously impair the smooth running of the institution. Indeed if sub-section (2) would have been cast in a negative form so as to provide that the sanc tioning authority was bound to give approval to any action taken by the institution against its teachers unless it was, after hearing the teacher and the management of the institution, satisfied that the order passed by the institution or the action taken by it was in violation of the prin ciples of natural justice, against the statutory provisions of law or tainted with factual or legal malice no objection could be taken. If the section would have been worded in this manner, then its validity could have been upheld on the ground that it was a sound regulatory measure which does not destroy the administrative autonomy of institution but is meant to ensure the security of tenure of the teaching staff of the institution. But as this is not so, the validity of the provision cannot . be supported. For these reasons, therefore, I am satisfied that sub section (2) is unconstitutional being violative of Article 30(1) of the Constitution and would have no app!i'Cation to any minority insti • 1 tution.

the

Sub-section (3) ad' section 3 runs thus:-

"3 (3) (a) No teacher employed in any private educational institution shall be placed under suspension, except

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G

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A

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974

SUPREME COURT REPORTS

[1980] 2 S.C.R.

when an inquiry into the gross misconduct of such teacher is contempleted.

(b) No such suspension shall

remain in force for more than a period of two months from the date of sus pension and if such inquiry is not completed within that period, such teacher shall, without prejudice to the inquiry, be deemed to have beeu restored as teacher.

Provided that the competent authority may, for reasons to be recorded in writing, extend the said period of two months, for a further period not exceeding two months, if, inquiry in the opinion of such competent authority, the could not be completed within the said period of two months for reasons directly attributable to such teacher".

These provisions deprive the minority institution of the power to suspend any teacher unless an inquiry into the gross misconduct of such teacher is contemplated. One could understand if the word 'misconduct' alone was used in sub-section (3) (a) but as it is quali fied by the adjective gross, it almost destroys the power of suspen sion which the minority institution might possess. Even so, sub section (3)(b) makes it clear that no suspension shall remain in force for a period of more than two months from the date of suspen sion ahd if no inquiry is completed within this period, the teacher WOl!ld have to be reinstated. This is indeed a most peculiar provi sion and gives an unqualified right to a teacher in the matter of supension. Even a Government servant to whom Article 311 of the CrnJstitution or the statutory rules apply does not enjoy such a liberal facility. Moreover, the rules make a mockery of any order of suspe'nsion passed pending an inquiry. to predicate how long an inquiry would last and yet to limit the period of suspension to two months irrespective of the nature, length and the scope of the inquiry to only two months is really to completely cnrb the power of suspension.

It is very difficutt

The proviso to section 3 ( 3) again empowers the competent authority to extend the, period of suspension. Thus the cumula tive effect of sub-sections (3) (a), 3(b) and the proviso is to inter fere · with institution the internal administration of the minority and curb the power of suspension a'ng thus deprive the institution of the right of or taking any discipli'nary action against the teacher to such an extent that the inslit,ution becomes almost a figure-head. Such a provision, therefore, cannot be upheld as it is clearly violative

,

'

ALL SAINTS HIGH SCHOOL v. GOVT. OF A.P. (Fazal Ali, !.) 975

It is obvious that A

of Article 30 ( 1) of the Constitution of India. whenever an institution suspends a teacher, it is bound to pay sub sistance allowahce and any express provision like sub-section ( 4) of section 3 is wholly unnecessary and makes a serious inroad on the internal autonomy of the institution. Thus, in our op1mon, section 3 in its entirety is ultra vires as being violative of Article 30(1) of the Constitution and is wholly inapplicable to the appellants who are admittedly minority institutions.

Section 4 of the Act may be quoted thus :-

" 4. Any teacher employed in

any private

education

institution-

(a) who is dismissed, removed or

reduced

in

rank or

whose appointment is otherwise terminated; or

(b) whose pay or allowances or any of whose conditions or service are altered or interpreted to his disadvant age, by any order;

may prefer an appeal against the order to such authority or officer as may be prescribed; and different authorities or officers _may be prescribed for different classes of private educational institutions.

Explanation : In this section, the expression 'Order' includes any order made on or after the date of the commencement of this Act in any disciplinary proceeding which was pend ing on that date".

This section gives a right of appeal to a teacher who is dismissed, removed or reduced in rank and whose services are terminated. No guidelin•cs arc provided in which manner this pow~r is to be exercis ed nor does it contain any provision which may entitle the minority in,titution '.o be heard by the appellate authority. No principles or norms are laid down on the basis of which the order passed by the institution could be examined by the appellate authority. Even what would amount to misconduct has not been defined or quali is, 1hercfc1'e, difficult to understand fied in sections 2, 3 or 4. how the appellate court would this power in deciding whether or not the teacher was guilty of misconduct and what is the correlation between the degree of misconduct and the appropriate punishment which may have been awarded by institution and approved by the competent authority. The conferment of such an 8-138 SC!/80

exercise

the

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976

SUPREME COURT REPORTS

[1980] 2 s.c .. P.

absolute and unguided power on the appellate authority which if passed against the management it cannot even file a civil snit to set aside ;his order amounts not only to a direct interference with the right e11shrined in Article 30 ( 1) of the Constitution but makes the minority institution a limp, lifeless and powerless body incapable of effective teaching and/ or attaining excellence in standards of the education. Such a course of action is bound to hurt ti;~ feelings of the founders of the institution. For these reasons, therefore, I am of the opinion that scctio'n 4 is also ultra vires as violative of Article 30 of the Constitution and would, therefore, have no application to the minority institutions who are appellants in this case.

Section 5 merely provides for transfer of an appeal pending before any authority to the appellate authority and if section 4. falls and is inapplicable to the minority institution section 5 also follows the same fate and will not apply to the minority institution.

Section 6 runs thus :-

"6. Where any retrenchment of any teacher employed institution is rendered necessary in any private educational consequent on any order of the Government to education or course of instruction or to any other matter, such retrenchment may be effected with the prior approval of the competent authority".

relating

B

c

D

This section deals with the contingencies under which the i'nStitu· tion may be compelled to retNnch any teacher employed in the school. Whatever be the position in other private educational insti tutions so far as the minority institution is concerned, this is purely a domestic matter of the institution and cannot be interfered with by any statute. The words "administer educational institutions of their choice" clearly indicate that the institution has an absolute right to · select teachers, retain them or retrench them at its sweet will accord· ing to the norms prescribed by the institution or by the religious Order which has founded the ins'itution. As almost all the minority institutions in the present case are not receiving any substantial aid from the Government but have established the institution by their own moneys and are bearing all the expenses themselves, it is none of the business of any outside authority to interfere with or dictate to the institution as to which member of the staff should be retrench ed and which should be retained. The provisions of section 6 directly interfere with this valuable right of the institution by pro viding that the retrenchment shall be made with the approval of the competent au'hority. The power is uncanalised and unguided and suffers from the same vices as has been pointed out in the case of

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ALL SAINTS HIGH SCHOOL v. GOVT. OF A.P. (Fawl Ali, J.) 9'17

aection 3 of the Act. For these reasons, therefore, section 6 will A fiave no application to the institution.

'

Section 7 may be extracted thns : -

"7. The pay and allowances of any teacher employed in any private educational institntion shall be paid on or before such day of every month, in such manner and by or through such authority, officer or person, as may be pres- cribed".

a1

This is purely an innocuous provision which is meant for the benefit of the institution itself by providing how the salaries of the emplo- yees of the institution should be paid and measure which does not at all touch or effect the administrative autonomy of the mi'nority institution.

is purely a

regulatory C

So far as sections 8 and 9 are concerned, they wonld obviously not apply to the minority institutions because these institutions do not receive any aid from the Government and are, liable to maintain or furnish accounts to the University authorities or to the Goven1111ent, nor the prescribed anthority has any right to ins- pect or pass audit of the accounts kept by the institution. For these reasons, sections 8 and 9 also do not apply to the minority institu tions.

therefore, not D

Section 10 relates to the inspection or inquiry in respect or private educational institution, its buildings, laboratories etc., or any other matter connected with the institution which may be necessary. Sub sections (2), (3) and (4) of section 10 provide the mode in which the inspection or inquiry is· to be made a'nd a report submitted to the concerned authority. These provisions are also in the nature of sound regulatory measures and appear to be in the larger interest of the functioning of the institution itself and, therefore, do not offend Article 30 of the Constitution.

Section 11 runs thus : -

"11. Every educational agency shall, within such time or within such extended time as may be fixed by the compe- tent authority in this behalf, furnish to the competent autho- rity such returns statistics and other the competent authority may, from time to time require."

information as

E

F

G

This section also contains purely a regulatory measure and is in the H best interest of the institution and cannot be said to violate Article 30( 1) of the Constitution.

1A

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11

978

SUPREME COURT REPORTS

ll980] 2 S.C.R.

Section 12 and 13 relate to penalties for contravention of the provisions of the Act which have been held by me to be violative of Article 30 and, therefore, inapplicable to the appellants because that would amol!nt to destroying the very foundation and personality of to the minority institution. These sections are also not applicable the minority institl!tion except n respect of provisions of the Act which have been upheld by me.

regarding

Section 15 contains the revisional power and provides that the the Government may delegate its powers, or make rules exercise of such a power. I have already pointed out that the setting up of a competent authority to sanction or approve the order passed by the institution in respect of a member of the staff where sufficient guidelines and grounds for approval have been prescribed is purely a regulatory measure and does not attract Art. 30 of the Constitu tion. The conferment of a right of revision against any order of the minority institution under the Rules framed which provide sufficient guidelines and allow the minority institutions an opportunity to be heard, is an innocuous provision and does not impinge on the auto nomy of the minority imtitution. I am, therefore, of opinion that such a provision is in the best institution and does not in any way harm the personality of the institution or destroy the image so as to interfere with its autonomous functioning. I, there fore, hold that section 15 is constitutionally valid and I might hasten this to add that its constitutionality was not challenged before Court.

interests of the

'section 16 bars a civil court from deciding the questions which fall under this Act and section 17 contains an indemnity clause. As I have held that almost all the operative and important provisions of this Act are ultra vires, these sections also would have no application In fact, section 16 suffers from a serious to the minority institution. defect, viz., that if it was held by me that the provision regarding appeal to the appellate authority was valid then section 16 completely bars the right of the management to file a suit to challenge the validity of the order of the appellate authority. To this extent, therefore, this Section makes a serious inroad on the fundamental right of the mino rity institution and must be held to be inapplicable to the minority institution.

I have gone through the judgment of the High Court which does not apear to have comidered the various aspects and features of the matter set out by me, 'nor has it properly applied the propositions summarised by me as culled out from the various decisions of this

•

ALL SAINTS HIGH SCHOOL v. GOVT. OF A.P. (Kailasam, !.) 979

Court starting from 1959 (Re: Kerala Education Bill's case) (supra) A to 1979 (Lily Kurian's case) (supra).

For these reasons, I hold the sections 3 ( alongwith its sub-sec tion), 4, 5, 6, 8, 9, 12, 13, 16 and 17 are violative of Article 30 of the Constitution and have no application to the appellants which are minority instilutions and which fall withih the protection gnarante- ·ed by the Constitution under Article 30. I accordingly allow all these appeals, set aside the order of the High Court and quash all the directions which may have been issned by the Government or other authorities under the Act to the appeCants except such steps as are taken under those provisions of the Act which have been up- held by me, viz., sectiohs 7, JO, 11, 14 and 15. the peculiar circumstances of the case, I leave the parties to bear their own costs.

In

KAILASAM, J. These appeals are by special

leave against

the

judgment of the High Court of Judicature at Andhra Pradesh.

Several writ petitions questioning the validity of certain provisions of the Andhra Pradesh Recognised Private Educational Institutions Control Act, 1975 (hereinafter called the Act) were heard. These writ petitions were disposed of by a common judgment by the Andhra Pradesh High Court. Aggrieved by the judgment of the High Court holding that the impugned sections of the Act is intra vires of the Cons titution, not void and operative on schools and institutions of the mino rities, the present appeals by special leave have been preferred.

The purpose of the legislation is set out in the Statement of Objects

and Reasons to the Bill.

It is statod : -

"Of late, several instances have come to the notice of the State Government regarding the various irregularities com mitted by the managements of private educational institutions in matters relatir.g to suspension, dismissal, removal or other wise termination, of members of the teaching staff on flimsy grounds without framing charges and without giving an oppor tunity to explain. The said managements are . also flouting the orders or instructions of Director of Pubiic Instruction or the Universities or the Government in respect of such matters. Having regard to the above circumstances, the Government teachers have decided to regulate the service conditions of employed in the private educational institutions to ensure security of service of the said teachers, and also to exercise certain control on such institutions in the matter of their this in accounts, etc., by undertaking suitable regard."

legislation

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980

SUPREME cot.RT REPORTS

[1980] 2 s.c.R..

A

The salient features of ·the Bill are given as under : -

(i) to safeguard the service cohditions of teaching staff in the recognised private educational institutions in removal, dismissal and the matter of suspension, retrenchment;

(ii) to make it compulsory for the private managements to obtain the prior permission of the competent autho rity before a teacher is visited with any of the afore said ma jar penalties;

(iii) to provide that the suspension of a teacher pending enquiry, should be for a period of two months only after which the teacher should be deemed to have been restored to duty, unless the competent autho rity extends the suspension period by another two months; thereby making it specific that in any case the teachers shall not be under suspension for more than four months;

(iv) to provide that no teacher should be retrenched with out the prior permission of the competent authority;

(v) to provide for payment of salaries to teachers on the specified day of the month in such manner and by or through such authorities, officer or persons, as may be laid down in the rules;

(vi) to provide for conducting enquiries into the affairs of and the recognised private educational institutions also for issue of suitable directions to the manage ments of such institutions based on such enquiry, which shall be binding on the monagcments.

B

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F

The writ petitions challenged the validity of sections 3 to 7 of the Act. Sections 3 to 7 occur in Chapter II relating to terms and condi It is necessary to set out the impugned tions of service of. teachers. sections ; .....

G

"Dis1nissal, ren1oval or reduction in rank or suspension of teachers.

employed in private educational institutions.

3(1). Subject to any rule that may be made in this behalf, no teacher employed in any private educational institution shall be dis R missed, removed or reduced in rank nor shall bis appointment be other the comDetent

wise terminated, except with the prior approval of authority.

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ALL SAINTS HIGH SCHOOL v. GOVT. OF A.P. (Kailasam, J.) 981

Provided that if any educational management, agency or institution teachers affected

contravenes the provisions of this sub-section, the shall be deemed to be in service.

(2) Where the proposal to dismiss, remove or reduce in rank or otherwise terminate the appointment of any teacher employed in any private educational institution is communicated the competent authority, that authority shall, if it· is satisfied that there are adequate and reasonable grounds for such proposal, approve such dismissal, removal, reduction in rank or termination of appointment.

to

(3a) No teacher employed in any private educational institution shall be placed under suspension, except when an inquiry into the. gross misconduct of such teacher is contemplated.

(b) No such suspension shall remain in force for more than a period of two months from the date of suspension and if such inquiry is not completed within that period, such teacher shall, without prejudice to the inquiry, be deemed to have been restored as teacher.

B

c

Provided that the competent authority may, for reasons

to be D

recorded in writing, extend the said period of two months for a further period not exceeding two months, if, in the opinion of such competent authority, the inquiry could not be completed within the said period of two months for reasons directly attributable to such teacher.

( 4) Every such teacher as is placed under suspension under snb section (3) shall be paid subsistence allowance at such rates as may be prescribed during the period of his suspension.

E

Appeal against orders of punishment imposed on teachers employ

ed in private educational institutions.

4. Any teacher employed in any private educational institution

( a) who is dismissed, removed or rednced in rank or whose

appoinment is otherwise terminated; or

(b) whose pay or allowances or any of whose conditions of service are altered or interpreted to his disadvantage, by any order;

may prefer an appeal against the- order to such authority or officer as may be prescribed; and different auth_9Jities or officers may be pres cribed for different classes of private educational institutions.

Explanation-In this section, the expression 'order' includes any order made on or after the date of the commencement of this Act in any disciplinary proceeding which was pending on that date.

Special provision regarding appeal in certain past disciplinary

cases.

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982

SUPREME COURT REPORTS

[1980] 2 s.c.R.

A

5. (I) If, before the date of the commencement of this Act, any teacher employed in any private educational institution has been dis missed or removed or reduced in rank or his appointment has been otherwise terminated and any appeal preferred before that date-

( a) by him against such dismissal or removal or reduction in rank

or termination; or

B

(b) by him or the educational agency against any order made before that date in the appeal referred to in clause (a); is pending on ihat date, such appeal shall stand transferred to the appellate authority prescribed under section 4.

(2) If any such appeal as is preferred in sub-section (1) has been disposed of before the date of the commencement of this Act, the order made in any such appeal shall be deemed to be an order made under this Act and shall have effect accordingly.

Retrenchment of teachers.

6. Where any retrenchment of any teacher employed in private educational institution is rendered necessary consequent on any order of the Government relating to education or course of instruction or to any other matter, such retrenchment may be affected with the prior approval of the competent authority.

c

D

Pay and allowances of teachers employed in private educational

E

institution to be paid in the prescribed manner.

7. The pay and allowances of any teacher employed in any private educational institution shall be paid on or before such day of every month, in such mauuer and by or through such authority, officer or person, as may be prescribed."

F

The object of the legislation in general and the impugned provisions in particnlar is to regulate the service conditions of the teachers and to ensure their security of service.

The main attack on the validity ot the impugned sections is that the provisions are violative of the rights conferred on the minorities to establish and administer their institutions under Arts. 29 and 30 of the Constitution. The plea is that their right to administer their institu tions is taken away by imposing unjustified and complete control with the authorities specified in the Act.

Before considering the provisions of each of the sections impugned it is necessary to refer to the nature of the right conferred on the mino rities. The relevant article is Art. 30 of the Constitution and is necessary to refer to the Art. and the important decisions rendered by this Court under the Article.

it

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Al.1 SAINTS HIGH SCHOOL v. GOVT. OF A.P. (Kailasam, !.) 9S3

"Right of minorities to establish and' administer educational insti- A

tutions.

•

>

Art. 30. (I) All minorities, whether based on religion or language, ·shall have the right to establish and administer educational institutions of their choice .

(2) The State shall not, in granting aid to educational institutions, discriminate against any educational institution on the ground that it is religion or under the management of a minority, whether based on language."

The educational institutions established and administered by the minorities in the exercise of the rights conferred under Art. 30 may be classified into 3 categories (1) those which do not seek either aid or recognition from the State or affiliation from the University; (2) those which seek aid and (3) those that seek either recognition or affiliation but not aid. We are not concerned with institutions which do not seek either aid or recognit'on from the State or affiliation from the Univer sity. The institutions which require aid may again be classified into two classes namely those which are by Constitution expressly made eligible for receiving grants and (2) which are not entitled to any grant by virtue of the express provisions of the Constitution. Here again we are not concerned with the first category. We are only concerned with the institutions which are no: entitled to any grant by any express provision in the Constitution.

~ ..

Articles 28(1), 29(2) and 30(2) deal v1ith educational institutions receiving aid out of State Funds. Certain restrictions are placed and obligations cast on institutions recognised by the State or receiving aid Art. 28(3) provides "No person attending any educational institutional recognised by the State or receiving aid out of State funds shall be required to take part in any religious instrucfons that may be imparted in such institutions or to attend any religious worship that may be conducted in such institution or in any premises attached thereto unless such person or, if such person is a minor. his guardian has given his consent thereto. Under the sub-article a peroan attend:ng an institution recognised by the State or receiving aid cannot be compelled by the institution to take part in any religious instruction or to attend relig'ous worship without his consent. Art. 29(2) provides that no citizen shall be denied admission into any educational institution maintained by the State or receiving aid out of State funds on grounds only of religion, race, caste, language or any of them. Under Art. 29(2) in institu tions receiving aid, a citizen is entitled to seek admission and the institutions is forbidden to deny admission to a citizen on grounds of

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984

SUPREME COURT REPORTS

[1980] 2 S.C.R.

religion, race, caste or language. While Art. 28(3) and 29(2) impose certain restrictions on institutions receiving aid, Art. 30(2) forbids the State from discriminating against any educational institution in granting aid on the ground that it is under the management of a minority, whether based on religion or language. The Constitution does not con- fer any right on the institution to receive any aid. It however forbids the State in granting aid to educational institutions from discriminating an educational institution on the ground that it is under the manage ment of a minority whether based on religion or language. This would imply that the State has right to grant or not to grant aid. It may be that the State is not in a position to grant aid to education institutions. In such circumstances nobody can force the State to grant aid. But if the State grants aid to educational institutions there should not be any discrimination. It is open to the State to prescribe relevant conditions and insist on their being fulfilled before any institution becomes entitled to aid. No institution which fails to1 conform to the requirements thus validly prescribed would be entitled to any aid. Educational institutions receiving aid whether they are' managed and administered by minorities or not have to conform to the requirements prescribed by the State in order to enable the institutions to receive aid. The requirements pres cribed shall not be discriminatory on the ground that it is under the management of a minority whether based on religion or language. The character of the minority institution should not also be destroyed. The right of the State to ensure that its funds are properly spent cannot be denied.

In Re: Kera/a Education Bill,(') at p. 1062 Chief Justice Das ruled that "the minority cannot surely ask for aid or recognition for an educational institution run by them in unhealthy surroundings, without any competent teachers possessing any semblance of qualification, and which does not maintain even a fair standard of teaching or which teaches matters subversive of the welfare of the scholars."

The learned Chief Justice proceeded to observe :---

"It stands to reason, then, that the constitutional right to administer an educational institution of their choice docs not necessarily milita•e against the claim of the State to insist that in order to grant aid the State may prescribe reasonable regulations to ensure the excellence of the institution to be aided."

ff

The scope of the reasonable regulations that can be imposed is clearly explained by the question framed by the Attorney General and the answer furnished by the Court at p. 1063. The State cannot say "I

!l) !l959] S.C.R. 995.

ALL SAINTS HIGH SCHOOL v. GOVT. OF A.P. (Kailasam, J.)

9g5,

have money and I shall not give you any aid unless you surrender to me your right of administration" (emphasis supplied) The Court held that regulations prescribed under the various clauses except sub-clause ( 5) of CL 3 which made the educational institutions subject to clauses 14 and 15, valid .

A.

The Kerala Education Bill which was referred to this Court for the purpose of opinion contained several clauses. A summary of the clauses is given in the judgment from pages 1023 to 1030 of the Reports, Clauses 6, 7, 9, 10, 11, 12, 14, 15 and 20 relate to the management of aided schools. The Court expressed its view that the provisions in clauses 7, 10, 11(1), 12(1), (2), (3) and (5) may easily be regarded as reasonable regulations or conditions for the grant of aid- (Vide p. 1064) . Clause 7 is extracted at p. 1025. It confers powers enumerated in the clause on the managers. Clause 10 requires the Government to prescribe the qualifications to be possessed by persons for appointment as teachers in Government Schools and in private schools which by the definition means aided or recognised schools. The State Public Service Commission is empowered to select candidates for appointment as teachers in Government and aided schools according to the procedure laid down in cl. 11. Clause 12 prescribes the conditions of service of the teachers of aided schools obviously intended to afford some security of tenure to the teachers of aided schools. It provides that the scales of pay applicable to the teachers of Government schools shall apply to all the teachers of aided schools whether appointed before or after the commencement of this clause. Rules applicable to the teachers of the Government schools arc also to apply to certain teachers of aided schools as mentioned in sub-cl, (2). Sub-cl. (4) provided that no teachers of an aided school shall be dismissed, removed or reduced in rank or suspended by the Manager without the previous sanction of the authorised oflker. With regard to sub-cl. l2(1) (2) and (3) which related to conditio.ns of service and security of tenure, the Court held that the purpose may easily be regarded as reasonable regulations or It was submitted that claus,s 9, 11 (2) conditions for grant of the aid. and 12 ( 4) went beyond the permissible limit as by taking over the collections of fees, etc. and by undertaking to pay the salaries of the teachers and other staff the Government is in reality confiscating the -;chool fund and under cl. 11 the power of management is taken away by providing that the appointment of a teacher should be out of the panel to be prepared by the Public Service Commission. Similarly it was submitted that by requiring previous sanction by the authorised offi cer before dismissal, removal or reduction in rank of a teacher, the right to administer was taken away. Chief Justice Das observed at p. 1064 of the Reports : "These are no doubt serious inroads on the right

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SUPREME COURT REPORTS

[1980] 2 S.C'. R . .

of administration and appear perilonsly near violating that right. Bm considering that those provisions arc applicable to all educational institutions and that the impugned parts of els. 9, II and 12 are designed to give protection and security to the ill paid teachers who arc engaged in rendering service to the nation and protect the backward classes, we are prepared, as .at present advised, to treat these clauses 9, 11 (2) and 12(4) as permissible regulations which the State may impose on the minorities as a condition for granting aid to the'r educational institu It is clear that so far as aided institutions are concerned con tions." ditions similar to those that are mentioned can be validly imposed on the institutions. The only prohibition is that the conditions should not be of such a nature as to deprive the character of the minority institu tions in their exercise of the rights conferred on them as minority institutions. So long as there are rules for the purpose of maintaining the excellence of educational institutions and not discriminating against the minority educational institutions they will be valic!.

The decisions rendered (ubsequent to the Kcrala Education Bill case may now be referred to see how for the views exprcss·od had been In Rev. Sidhajbhai Sabhai & Ors. v. State of Bombay & modified. A nr. CJ a Bench of 6 Judges held that the order of the Government directing that 80% of seats in the training coH .. ~gcs should be re~crved for that if the order was disobeyed, Government nominee with a threat grant and recognition would be withdrawn, was invalid. The Court !aid down that reasonable restrictions in !lie interest of the cffici<':ncy of instruction, discipline, health, sanitation and the like may be imposed as those regulations will not be restrictions on the substance of the right guaranteed, for they secured the proper functioning of the institution in educational matters. The Court held that "if every order which while maintaining the formal character of a minority institution destroys the power of administration is held justifiable because it is in !he public or national interest, though not in its interest as an educational institu tions, the right guaranteed by Art. 30 (1) will be but a "teasing illu sion", a promise of unreality. Regulations which may lawfully be imposed either by legislative or executive action as a condition of receiving grant or of recognition must be directed to making the institu tion while retaining its character as a minority institution effective as an educational institution- The dual test prescribed is the test of reasonableness and the test that is regulat:ve of the educational character of the institution and is conducive to making the institution an effective vehicle of the education of the minority community or the persons who resort to it. The requirements of reservation of 80% of the seats will

B

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ALL SAINTS HIGH SCHOOL v. GOVT. OF A.P. (Kailasam, !.) 9Si

r' ,

imposed even in

the case of institutions

destroy the right to management as a minority institution and as such receiving aid. cannot be Conditions of such a nature that would result in surrender of the funda mental right to administer cannot be imposed. After referring to the decision in the Kerala Educational Bill case, the Court observed that it did not decide that a regulation would be deemed unreasonable only if it was totally destructive of the right of the minority to administer the educational institution. This view was affirmed in the St. Xavier's laid down requires that College case [1975] 1 SCR 173. The test the regulation must be for regulating the educational institution for the (emphasis minority committee as well other persons who resort to it. supplied)

The case of Rev. Father W. Proost and Ors. v. The State of Bihm and Ors. CJ relates to affiliation. This Court was considering tbe vali dity of s. 48-A of the Bihar University Act. Under s. 48-A a Un;versity Service Commission for affiliated Colleges was established. It was provided amongst others that subject to the approval of the Unhcrsity, appointments, dismissals, removals, termination of service or reduction in rank of teachers of an affiliated college not belonging to the State Government shall be made by the governing body of the Collci;c on the recommendation of the Commission. While the petition was pend ing before this Court the Governor of Bihar promulgated an Ordinllilce by inserting Sec. 48-B which exempted Colleges established and admi nistered by the minorities from the operation of the provisions of clauses (6), (7), (8), (9), (10) and (11) of s. 48-A. After the introduc tion of s. 48-B the petitioners before this Court claimed protection under S. 48-B and submitted that affiliated Colleges established by minorities arc exempt from the operation of the impugned provisions of s. 48-A. It may be noted that nnder s. 48-B the governing body of an affifattcd college established by a minority shall be entitled to make appointments, dismissals, removals, termination of service or reduction in rank of teachers or take other disciplinary action subject only to the approval of the Commission and the Syndicate of the f!ui versity. The petitioners did not challenge the provisions which oro vided that appointments, dismissals, removals, termination 0f senice and reduction in rank of teache.rs or other disciplinary measures will be subject to the approval of the Commission and the Syndicate of the University. What was objected to was the provisions under s. 48-A which esrablished an University Service Commission on whose recommendations alone appointments, dismissals, removals, termma tions of service or reduction in rank of teachers of an affiliated college

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(I) [1969] 2 S.C.R. 73 .

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988

SUPREME COURT REPORTS

! 1980] 2 S.C.H.

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can be effected. A provision requiring prior approval uf the Commis; sion or Syndicate was not challenged as objectionable'.

In State of Kera/a v. Very Rev. Mother Provincial('), the consti tutional validity of certain provisions were challenged on the grounJ that they interferred with the rights of the minority institutions. The Kerala University Act, 1979 was passed to re-organise the University of Kerala with a view to establishing a teaching, residential and affiliat ing University for the Southern Districts of the State of Kerala. Ss. 4d and 49 dealt with the Governing Bodies of private colleges. The Edncational Agency of a private College was required to set up a Governing Body for a private College or a managing council for private-colleges under one corporate management. The section pro vided for the composition of two bodies so as to include Principals and Managers of private colleges, nominees of the University and Govern ment as well as elected representatives of teachers. Sub-s. (2) pro vided that the new bodies would be having corporate perpetual suc- cession and the members would bold ofti.ce for four years. Sub-section cast a duty on the new governing body or the managing council to administer the private college or colleges in accordance with the pro visions of the Act. The provisions of s. 53, sub-ss. (1), (2), (3) and (9) conferred on the Syndicate of the University power to veto the decision of the Governing Council. A right of appeal was provided for any person aggrieved. Section 56 conferred ultimate power on the University and the Syndicate in disciplinary matters in respect of teachers. This Court held that sub-s. (2) and ( 4) of Ss. 48 and 49 as ultra vires. The Court agreed that the High Court was right in declaring that sub-ss. (1) and (2), (9) and of s. 53, sub-ss. (2) and (4) of s. 56 as ultra vires.

In D.A.V. College etc. v. State of Punjab & Ors(') the validity of cl. 18 which required that non-govermnental Colleges shall comply with the requirements laid down in the ordinances governing service of teachers in non-govermnental Colleges as may be framed by the University was considered. Clause 18 so far as it is applicable to the minority institutions empowered the University to prescnbe by regula· tion governing the service of teachers which is enacted in the larger interest of the institution to ensure their efficiency and excellance. The Court held : "It may for instance issue an ordinance in respect of age of superannuation or prescribe minimum qualifica:: 1ns for teachers to be employed by such institutions either generally or in particular sub-

(!) [1971] 1 S.C.R. 734. (2) [1971] Supp. S.C.R. 688.

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AJ,L SAINTS HIGH SCHOOL v. GOVT. OF A.P. (Kailasam, 1.) 989

jects. Uniformity in the conditions of service and conduct of teuchers A in all non-Government Colleges would make for harmony and avoid frustration."

interferred with restrictions, by way of

A reading of the decisions referred to above make it clear that while the right to establish and administer a minority institution can not be regulations for the purpose of maintaining the educational standards of the institution can be validly imposed. For maintaining the educational standard of the institution as a whole it is necessary to ensure that it is properly staffed. Conditions imposing the minimum qualifications of the staff, their pay and other benefits, their service conditions, the imposition of punish ment will all be covered and regulations of such a nature have been In the case of institutions that receive aid it is the held to be valid. duty of the Government who grants aid to see that the funds are pro perly utilised. As the Government pays their bounden duty to see that well-qualified persons are selected their pay and other emoluments are guaranteed and service conditions secured. So far as the institutions receiving aid are concerned if the regulations are made for the purpose of safeguarding the rights of the staff the validity cannot be questioned as long as the regulations do not discrimi nate the minority institution on the ground of religion or language.

for the staff it is

The minority institutions have no fundamental right to demand re cognition by the State or affiliation by the University but as recogni tior: and affiliation is necessary for the effective exercise of the funda mental right of minorities to establish and administer their institu tions, they are entitled to recognition and affiliation if reasonable con ditions that are imposed by the Government or the University relevant for the purpose of granting recognition or affiliation are complied with. Before granting recognition or affiliation it is necessary that the con cerned Government or the University is satisfied that the institution keeps up with the required minimum standard. As has been held by Das CJ., ''Right to administer cannot obviously inclnde the right to mal-administer" and in the words of Shah, J. "The right is subject to reasonable restrictions in the interest of efficiency of instruction, discip line, health, sanitation and the like." Jnstice Jaganmohan Reddy has made it clear in upholding cl. 18 of the Guru Nanak University, Amrit sar Act, 1961 that regulations relating to the recruitment and service conditions of the teachers of the institution are valid.

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The decision of 9 Judges' Bench in The Ahmedabad St. Xaviers College Society & Anr. etc. v. State of Gujarat & Anr. (') may now

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and could not be applied

be considered. AU the 9 Judges were unanimous th11t the right to aid or recognition was not a fundamental right but that aid or recognition cannot be offered on conditions which would involve a surrender of those rights. But the rights of recognition and affiliation are subject to regulations which are necessary for maintenance of the educational In the St. Xaviers College case (supra), S. 33A(l)(a) institutions. was challenged. It provided that every college was to be under the management of a governing body which must include a representative of the University and representatives of teachers, non-teaching staff and students of the college. Eight of the nine Judges held that S. 33A to minority (1) (a) violated Art. 30(1) institutions. This Court in a subsequent decision in G.F. College Shaha jahanpur v. University of Agra and Anr.C) held that it would not be unconstitutional to direct that the Principal and the Senior Teacher appointed by the Governing body itself be tnken into the manag·ng committee. The Court in St. Xavier's College case also considered the validity of S. 51-A(l)(a), (2) (a) and 51-A(l) (b). Section 51-A(l) (a) and (2) (a) provided that no member of the teaching, other academic and non-teaching staff was to be dismissed, removed or reduced in mnk except after an inquiry in which he had been in formed of the charges against him and bad been given a reasonable opportunity of being beard and making a representation on the penalty proposed to be inflicted. No termination of service not amounting to dismissal or removal was to be V'a!id unless such member had been given a reasonable opportunity of showing cause against the proposed termination. The two clauses were held to be valirl, as being rea sonable. However, the Court held that S. 51-A(l) (a) and (2) (b) as violative of Art. 30(1). Section 51-A(l) (b) provided that the penalty to be inflicted on him must be approved by the Vice-Ch11ncellor or any other officer of the University authorised by the Vice-Chancellor ln this behalf. Similarly, S. 51-A(2) (b) provided that "such ter mination is approved by the Vice-Chancellor or any officer of the Uni versity authorised by the Vice-Chancellor in this behalf." Section 51-A(l) (b) required the approval of the Vice-Chancellor, or other officer authorised by him. for the penalty to be inflicted under sub-s. 1 (a), and S. 51-A(2)(h) required similar approval for the termina tion of service under sub-s. (2) (al. The Court also held that S. 52-A which required that any dispute between the governing body and anv member of the teaching, other academic and non-teaching s'aff of an affiliated college, connected with the terms of service of such member. must be referred to a Tribunal of Arbitration consist;ng of O"e mem [;c:· each appointed by the governing body acd hv the member of the

·- - -. (I) (19751 3 S C.R. 810.

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ALL SAINTS HIGH SCHOOL v. GOVr. OF A.P. (Kwlusam, !.) 991

staff and an umpire appointed by the Vice-Chancellor was not V'alid. Seven out of 9 Judges held that S. 52-A violated Art. 30(1) and coulc:\ not be applied to minority institution.

· Minority institutions seeking affiliation will have to follow statutory measures intended to regulate the conduct of the educational institu tion. Ray, C.J. p. 193 held:-

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·'With regard to affiliation a minority institution must follow the statutory measures regulating educational standards and efficiency the prescribed courses of study, cours@s of ins tructions and the principles regarding the qualification of teachers, educational qualifications for entry of students into institution educational institutions etc. When a minority applies to a University to be affiliated, it expresses its choice to participate in the system of general education and courses of instruction prescribed by that University*''"'*'''' There fore. the meamres which will regulate the courses of study. the qualifications and appointment of teachers, the conditions of employment of teachers,*******''"'* are all comprised in matters germane to affiliation of minority institutions. These regulatory measures for affiliation are for uniformity, efficiency and excellence in educational courses and do not violate any fundamental l'ight of the minority institutions under Art. 30" (emphasis supplied)

Ray C.J. held thats. 51A(l) (b) and S. 51A(2) (b) i' not applicable to minority institutions as they "cannot be said to be pern1issive regu latory mc~surcs inasmuch as it confers arbitrary power on the Vice Chanccllor to take away the right of administration of the minority institutions."

Agreeing with the view of the Chief J us ti cc, regarding his con clusio~ about S. 5!A(l)(a) and (2)(b), Khanna, J. at p. 243 ob served :--

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"Although disciplinary control over the teachers of a minority educational institution would be with the governing council, regulations in niy opinion, can be nzade for ensuring proper conditions of service of the teachers and for securing a fair procedure in the matter of disciplinary action against the teachers. Such provisions which are calculated to safe~ guard the interest of teachers would result in security of tenure and thus inevitably attract competent persons for the posts of teachers. * • * • * Regulations made for this

9-138 SCJ/80

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purpose should be considered to be in thC' interests of mino rity educational institutions and as such they would not violate Art. 30(1) ".

(emphasis supplied)

;

Regarding S. 5 lA, the learned Judge while holding that prov1s10ns under CL (a) of sub-ss. (1) & (2) of s. SlA which make provision for giving a reasonable opportunity of showing cause against a penalty to be proposed on a member of the staff would be valid. Cl. (b) of the sub-s. which gives a power to the Vice-Chancellor and officer of the University authorised by him to veto the action of the managing body of an educational institution in awarding punishment to a mem ber of the staff, interferes with the disciplinary control of the managing body over its teachers. He was of the view that the power conferred on the Vice-Chancellor or other officer is a blanket power and no guide lines were laid down for the exercise of that power and it is not pro vided that the approval is to be withheld only in case the dismissal, removal, reduction in rank or termination of service is roala fide by way of victimisation or other similar cause. The conferment of such blanket power on the Vice-Chancellor or other officers authorised for vetoing the disciplinary action of the managing body of a educational institutional made scrious inroads on the right of the managing body to administer an educational institution.

Mathew, J. in dealing with S. 51A(l) (a) and (b) at p. 273 ob

served:-

The exact scope of the power of the Vice-Chancellor or of the officer of the University authorised by him in this sub section is not clear. If the purpose of the approval is to see that the provisions of sub-section 51A(l)(a) are complied with, there can possibly be no objection in lodging the power of approval even in nominee of the Vice-Chancellor. But an micanalised power without any guidline to withhold approval would be a direct abridgement of the right of the management to dismiss or remove a teacher or inflict any other penalty after conducting an enquiry." (emphasis sup plied)

The learned Judge proceeded to observe :

"Of course it is open to the State in the exercise of its services of a

regulatory power to require that before the teacher are tuility of being heard that

terminated, he should be given oppor in his defence. But to require teacher after

the services of a

terminating

.for

ALL SAINTS HIGH SCHOOL v. GOVT. OF A.P. (Kailasam, J.)

9 :) 3

an enquiry has been conducted, the management the approval of an outside agency like should have the Vice-Chancellor or of his nominee would be an ab ridgement of its right to administer the educational institution. legislature to the Vice No guidelines are provided by the Chancellor for the exercise of his power. The fact that the power can be delegated by the Vice-Chancellor to any officer of the university means that any petty officer to whom the power is delegated can exercise a general power of veto. There is no obligation under the sub-sections l(b) and 2(b) that the Vice-Chancellor or his nominee should give any reason for disapproval. As we said a blanket power with out any guideline to disapprove the action of the management would certainly encroach upon the right of the management to dismiss or terruinate the services of teacher after an en quiry".

The extracts from the

judgments of Ray, J. Khanna, J. and Mathew, J. show that regulations can be made for ensuring the pro per conditions of service of the teachers and for securing fair prn cedure in the matter of disciplinary action against them. Prcscribirg uniforruity in the conditions of service and conduct of teachers in ail non-govern1nental colleges would promote har1nony, avoid frustration and is permissible. It is thus seen that the university or the authcrity granting recognition can prescribe the conditions of service of tcachc,·s providing them with security of service. The rules may require that no Principal of the teaching or non-teaching staff of •a recognised or a approved institution shall be dismissed, removed or reduced in rank except after an enquiry in which he has been informed the charges against him and given a reasonable opportunity of being heard in res pect of those charges und making representation on any penalty pro posed to be inflicted on him. The Government which grants recog nition or the University which gives affiliation are entitled to sec that proper conditions of service of the teachers are ensured and fair pro cedure is observed by the institutions when disciplinary action is taken against them. If the regulations require the approval by the competent authority for safeguarding the rights of the teachers and for securing the procedure there could be no objection. Such authority can also interfere with the decision of the private institutions when the punish ment is awarded mala fide or by way of victimisation or for similar causes.

In Kerala Education Bill, 1957 Cl. 14(4) provided that no teacher of an uided school shall be dismissed, removed or reduced in rank or

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suspended by the Manager without the previous sanction of the autho rised officer. This requirement of sanction related to schools that sought aid from the Government. While upholding the validity of cl. 14, Das CJ. observed that there could be no doubt that these are serious inroads in the right of the administration and appe-ar perilously near violating that right. But considering that those provisions '.Ire applicable to all educational institutions and that the impugned parts of els. 9, 11 and 12 'are designed to give protection and security to the ill-paid teachers who are engaged in rendering service to the nation and protect the backward classes we are prepared, "as at present advised to treat clauses 9, 11 (2) and 12 (4) as permissible regula tions the State may impose on the minorities as a condition for grant ing aid to their educational institutions. Ray CJ. in St. Xavier Col lege case, observed that though the opinion was given in Kerala Educa tion Bill on an order of reference under Art. 143 is not binding on this court in any subsequent matter wherein a concrete case the infringe ment of the rights under any analogous provision may be called in question, it is entitled to great W•ight. Ray C.J. proceeded to observe that nonetheless the exposition of the various facets of the rights under Art. 29(1) and 30 by Das, C.J. speaking for the majority, with utmost cfarity, great perspicuity and wisdom ha; been the text from which Court has drawn its sustenance in the subsequent decisions. To the extent that this Court has applitd these principles to concrete cases there can be no question of there being any conflict with what has been observed by Das, CJ. Ray, C.J. was of the view that similar pro visions were held to be invalid as they fell with S. 48 and 49 of the Kerala Education Act, which was similar to cl. 12( 4) was held invalid. Matbew, J. was of the view that though in the Kerala Education Bill case, the Court upheld the provisions similar to those in S. 51A(l) (b) and 51 (A) (2) (b), the subsequent decisions of this Court left no doubt that the. requirement of subsequent approval for dismissing or terminat (Learned ing the services of teachers would be offending Art. 30. Judge referred to D.A.V. Coll'g' case).

In the Kerala Education Act case (supra), the validity of sub-ss. 2 & 4 of S. 48, S. 49, S. 53, Sub-ss. 1-9 and sub-ss. 2 and 4 of S. 56 were challenged. Hidayatullah, CJ. speaking for the Court observed tlrat after the erection of the Governing Body of the Managing Council, the founders or even the minority conimunity had no hand in the ad ministration. The two bodies were vested with the complete adminis tration of the institution and were not answerable to the founders in this respect. Sub-ss. (2), ( 4) and (5) and (6) of ss. 48 and 49 clearly

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ALL SAINTS HIGH SCHOOL v. GOVT. OF A.P. (Kailasam, J.) 995

vest the management and administration in the hands of the two bodies with mandates from the university. Coupled with this is the power of the Vice Chance!lor and the Syndicate under sub-sections (2) and ( 4) of S. 56 to have the final say in respect of disciplinary proceedings In striking down clauses (2) and (4) of S. 56, against the teachers. the Learned Chief Justice at p. 746 stated that the result was that sub-ss. (2) and (4) of S. 56 are ultra vires as they fail with ss. 48 and 49. The Scheme of the Act was that a Governing Body or Managing Council was to be set up for private colleges and it was pro vided that the composition of the bodies were to include Principals, Managers of private Colleges and nominees of the University and Gov ernment as well as elected representatives of the teachers. This out side body was entrusted with the administration. These two sections 48 and 49 which provide for administration by the Governing Body or the Managing Council was held io be ultra vires. Apart from it, the powers were conferred on the Syndicate of the University to veto the decision of the Governing Council. Regarding disciplinary matters, S. 56 conferred ultimate power on the University and the Syndicate in respect of teachers. As the power to take disciplinary action was taken away from the Priv'atc or the Minority Institutions and conferred on the Governing Body or the Managing Council constituted under the Act and a provision was made requiring the previous sanction on the Vice-Chancel!or and provided an unrestricted right to the Syndicate. It will be noted that the Chief Justice found Ss. 56(2) and (4) ultra vires as they had to fail ·alongwith Ss. 48 and 49 which deprived the institution of the right to manage its own affairs.

In the case of D.A.V. College v. State of Punjab (supra), cl. 17 the provided that the staff initially appointed shall be approved by ~ '--- Vice-Chancellor and all subsequent changes shall be reported to !he University for Vice-Chancellor's approval. S. 17 does not, in fact, confer on the Vice-Chancel!or the power to veto the disciplinary action taken by the private institution.

In St. Xavier College case, also the management of the institution

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was completely taken away under Ss. 40 and 41 of the Private Institution was required to bo a constituent College of University and was to be governed by the Statutes that may be framed by the University. Ss. 31A (l) (a) set up a Governing Body which to include amongst its Principals the representatives of the University nominated by the Vice-Chancellor and representatives of the Teachers of the non-teac.hing staff and students of the, college. stances, the Court held that the right to administer and to conduct the affairs of the institution, were taken away from the institution. The

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the disciplinary proceedings ·which were to be conducted against teachers was required to obtain approval of the Vice-Chancellor or any other officer of the University authorised by the Vice-Chancellor. ~part from the objection to the power conferred on the Vice-Chancel the lor to nominate any of its subordinate, the power conferred on Vice-Chancellor was found to be unconstitutional as it was a blanket power unguided and uncanalised.

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the Ordinances

the University of Kerala, under S. 19

In Ully Kurian v. Sr., Lewina and Ors.('),' the provisions of Ordi the nance 33, Chapter 67 of Syndicate of (1) of the Kerala University Act, 1957 was challenged. S. 33 (1) provided that the management may at any time place a teacher under suspension where a disciplinary proceedings against him is contem plated or is pending. He shall be paid subsistence allowance and other allowances by the Man·agement during the period of suspension at such rates as may be specified by the university. The teacher shall have the right to appeal against the order of suspension to the Vice Chancellor of the University within a period of two months from the date on which he receives the order of suspension. Cl. 4 of Ordinance 3 3 provided that the teacher shall be entitled to appeal to the Vice Chanccllor of the University against any order passed by the Manage ment in respect of the penalties referred to in items (ii) to (v). Ordi nance 33 ( 4) conferred a right of appeal on the teacher to prefer an in appeal against the order of Management to the Vice-Chancellor respect of the penalties imposed on him. Ordinances 33(1) and 33 ( 4) were struck down by this Court on the ground that the confer ment of right of appeal an outside authority like the Vice-Chancellor under Ordinance 33(4) took away the disciplinary power of the min ority institution. The Vice-Chancellor was given power to veto the -./' disciplinary control which amounted to clear interference with discip It was found to be a fetter linary power of the minority institution. on the right of administration conferred under Art. 30(1). The main ground on which the powers were found to be violative of the right conferred under Art. 30 was that the right of appeal was provid- In the cases ed without defining the scope of the appellate authority. referred to, namely, Very Rev. Mother Provincial, D.A.V. College and Lilly Kurian, the powers conferred on the Vice-Chancellor were held to be blanket power, unguided and uncanalised. The background of the decisions was that the minority institutions were deprived of the powers of administration by forming a body which deprived the insti In such circumstances, it was found that the tution of all its powers. In the case of Rev. Father W. Proost and power was uncana!ised.

(1) [1979] 1 S.C.R. 820.

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ALL SAINTS HIGH SCHOOL v. GOVT, OF A.P. (Kailasam, J.) 997

Ors. (supra), S. 48 was enacted providing that the minority institu tion shall be entitled to make appointments, dismissal, removal, termi nation of service and reduction in rank of teachers, subject only to the approval of the Syndicate of the University, which was not challenged. The institution claimed exemption under s. 48B. Bearing the facts of the cases set out above, we have to consider the impugned Act and determine whether the impugned provisions infringe the rights confer red on the minority institutions under Art. 30.

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It is further stated that private

The statements of object and reasons and the salient features of the bill as stated in the objects and reasons and the impugned sections have been set out in full at the beginning of the judgment. The main ob ject of the legislation is to regulate the service conditions of the teachers in the private educational institutions and for ensuring the security of institution service of the teachers. were punishing teachers on flimsy grounds without framing charges In the preamble it is and without giving an opportunity to explain. also stated that the Act is to provide for terms and conditions of ser vice of teachers and to control of the recognised private educational institution. S. 3 of the Act provides that no teacher employed in any private educational institution shall be dismissed, removed or reduced in rank nor shall hls appointment be otherwise terminated except with the prior approval of the competent authority. S. 3 (2) will have to be read alongwith S. 3 (1) which provides that when a proposal to dismiss, remove or reduced in rank or otherwise terminate the appointment of any teacher employed in any private educational institution is communi cated to the competent authority, the competent authority shall if it is satisfied that there are adequate and reasonable grounds for such pro posal, approve such dismissal, removal. reduction in rank or termina tion of appointment. The Proviso to S. 3 (1) states that if any educa tional management, agency or institution contravenes the provtsions of this sub-section, the teacher affected shall be deemed to be in service. This section was challenged as conferring a power of taking disciplinary proceedings on an outside authority and as such it should be held as If the violative of the rights conferred on the minority institutions. power of approval conferred on the competent authority is a blanket G power uncanalised and without guidelines, it will have to be held as invalid.

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The question, therefore, arises whether the section provides suffi cient guidelines for the exercise of the power by the competent autho- rity. In the State of West Bengal v. Subodh Gopal Bose and Ors.(') it was l1eld that the statement of objects and reasons could be referred to

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for the limited purpose of ascertaining the conditions prevalent at the time which actuated the sponsor of the bill to introduce the same and the extent of urgency and the evil which he sought to remedy since these matters were relevant for deciding whether the restrictions were ( 6). The object reasonable within the meaning of Art. 19 (2) and reasons for the legislation make it very clear that the legislation was intended to regulate .the service conditions of teachers employed in private educational insti1utions and for ·the security of service of the the said teachers. The preamble is also an aid in construing provisions of the Act. The House of Lords in A It. Gen. v. H.R.H. Prince Earnest Augustus of Hanover('), held that when there is a preamble it is generally in its recitals that the mischief to be r~medied It is, therefore. permissible and the scope of the Act are described. to have recourse to it as an aid to construing the enacting provisions. Tl1e preamble states that the Act it to provide for terms and servke conditions of teachers. If the power conferred under S. 3(1) and s. 3(2) is restricted to regnlating the service conditions of teachers and for ensuring their security of service, the power conferred would be It was submitted by Mr. Lal Narain Sinha the learned counsel valid. for the appellants that the power i<; uncanalised because the approval can be withheld even on merits which would in fact deprive the dis ciplinary powers of the minority institutions.

It is a well settled rule that in interpreting the provisions of a statute, the court will presume that the legislatio;1 was intended to be intra vi res and also reasonable. The rule followed is that the section ought to be interpreted consistent with the presumption which imputes to the le!!is!ature an intention of limitin!! the, direct operatiO(l of its lnterpre enactment to the extent that is permissible('). Maxwell on tation of Statutes, Twelfth Edn., P. 1 09 under the Caption : "Restric tion of Operation" States : - "Sometimes

the limits of it< to keep the Act within scope, and not to distnrb the Cxistitlg liw beyond what the object requires, it is construed as operative between cer tain persons, or in certain circumstance:is, or for certain pur poses only, even though the langnage expresses no such circumscription of the field of operation."

The following passage in Bidie v. General Accident, Fire and Life Assurance Corporation(') was cited with approval in Kesavananda Bharti v. State of Kerala (4 )

:

(I) [1957] A C. 436. (2) Street on Doctrine of Ultr01 Vires 1930 Edn. P.444. (3) [1948] 2 All. E. R. 995, 998. (4) [1973) Supp. S.C.R. 1 (101).

ALL SAINTS HIGH SCHOOL v. GOVT. OF A.l'. (Kailfrsam, J.) 999

"The first thing . one has to do, I venture to think, in construing words in a section of an Act of Parliament is not to take those words in vacue, so to speak, and attri bute to them what is sometimes called their natural or ordinary meaning. Few words in the English Jangnage have a natural or ordinary meaning in the sense that they must be so read that their meaning is entirely independent of their context. The method of construing statutes that I prefer is not to take particular words and attribute to them a sort of prima facie meaning which may have to displace read the statute as a whole and ask or modify. "In this state, in this context, relat oneself the question : ing to this subject-matter, what is the true meaning of that word?"

It is to

According to Holmes, J. in Towne v. Eigner(l), a v.ord is not crystal, transparent and unchanged; it is the skin of living thought and may vary greatly in colour and content according to the circumstances and the time in which it is used. Gwyer, J. in Central Provinces and Berar A ct('), held :

"A grant of the power in general terms, standing by itself, would no doubt be construed in the wider sense; but it may be qualified by other express provisions in the satne enact ment, by the implication of the context. and even by the consideratrons arising out of what appears to be the general scheme of the Act."

To the same effect are the observations of this Court in Kedar Nath Singh v. State of Bihar: ( 3 )

"It is well settled that in interpreting an enactment the Court should have regard not merely to the literal meaning of the words used, but also take into consideration the an tecedent history of the Jcgis!ation, its purpose and the mis (The Bengal Immunity Co. Ltd. chief it seeks to supress. v. The State of Blhar [1955] 2 S.C.R. 603 and R.M.D. Chamaurbaugwalla v. The Union of Indici fl 957] S.C.R. 930 cited with approval."

This Court has in several cases adopted the principle of reading down the provisions of the Statute. The reading down of a provision of a statute puts into operation the principle that so far as it is reaion-

(1) 245 u. s. 418~62 L. ed. 372, 376. (2) [1939] F. C.R. 18 & 12. (3) [1962] 2 Suppl. S.C.R. 769.

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ably possible to do so, the legislation should be construed as being It has the principle effect that where an Act" is within its power. expressed in language of a generality which makes it capable, if read literally, of applying to matters beyond the relevant legislative power, the Court will construe it in a more limited sense so as to · keep it within power.

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Applying the principles laid down in the cases cited above, the power conferred under S. 3 (1) and (2) of the impugned Act will have to be construed. This Court has in St. Xcn-ier's College . case (supra) held t.hat the proviskms of S.51A(l) of the impugned Act in that case which provided that no member of the other academic and non-teaching staff of an affiliated college and recognised or appro institution shall be dismissed. or removed or reduced in rank ved in which he has been informed of the except . after an enquiry charges against him and "given a reasonable opportunity of being heard in respect of those charges and until he has been given a reasonable opportunity of making representation on any such penal ty proposed to be inflicted on him,' as a valid condition. Mathew, J. affirmed that if the purpose of the approval is to see that the provisions of sub-sec. 51 (A) (1) ('l)·are complied with, there can possibly be no· objection in lodging the power of approval even in nominee of the Vice-Chancellor. Khanna, J. has held that if the power is confined only to cases of dismissal, removal or reduction in rank .or termination of service as mala fide and by way of victimisation, the power would be valid. Regarding the power of interference with the conclusion of a domestic tribunal in disciplinary matters, this Court has held that the decis\on can be interfered with if there is want of good faith or when there is victimisation or when the management has been guilty of basic · F .' error or violation of principles of natural justice or when the material . findings are completely baseless or perverse_ (Indian Iron and Sieel Co. Ltd. v. Their Workmen('). It has also been held that the authority interfering is not a Court of Appeal and cannot substitute its own judg ment.

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The impugned legislation was passed in the year 1975. It must be presumed that the legislature was conscious of the limitations of the power which the competent anthority can have in granting or with holding approval in the ,case of disciplinary proceedings conducted by · private institution. cl. 12( 4) of the Kera la Education Bill (supra) was · held io be valid on the ground that it was designed to give protection and security to the ill-paid teachers who are engaged in rendering ser vice to the natiol) and protect the backward classes. If the power is

(1) [1958] S.C.R. 667.

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ALL SAINTS IIIGH SCHOOL v. GOVT. OF A.P. (Kailasam, J.) 1001

constrused as conferring unrestricted power and if the provisions are held invalid, it will result in considerable mischief and would result in depriving the protection that is available to the poor teacher regarding their security of service. The legislation was for the specific purpose of regulating the service conditions and providing security of service and for preventing teachers from being punished on flimsy grounds without framing charges and with,out giving an opportunity to explain. Jt is very different from other cases, in which the legislation was aimed at depriving the minority institutions of all its powers. The only aim of the impugned legislation is to provide security of service. As pointed out there are sufficient guidelines in the objects and reasons in the legis lation as well as in the preamble. In the circumstances, it is not only reasonable but proper that a restricted meaning is given to the power of prior approval c.onfcrred on the competent authority under s.3.

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S.3(1) and (2) will have to be read together. The procedure con templated is that when the educational insitution proposes io dismiss, re move or reduce in rank or otherwise terminate the appointment of any teacher it should communicate to the competent authority its proposal. The latter part of S.3 (2) mentions that the competent authority shall !f it is satisfied that there arc adequate and reasonable grounds for such proposal approve such dismissal, removal, reduction in rank or other wise termination of appoinment. The approval of an order of dismissal or removal etc. will have to be read alongwith S.3 (1) which provides that no teacher shall be dismissed etc. without the previous approval of the competent authority. When a domestic enquiry has been con ducted and the teacher is given an opportunity to rebut the charges and show cause against the punishment proposed and when fair pro cedure has been followed and the authority comes to the conclusion that the disciplinary action should be taken against the teacher the pro posal w;u have to be sent to the competent authority. The competent authority will examine the proposal alongwith the procedure adopted by the institution and such dismissal, removal or reduction in rank or ter mination of appointment. Sub. s(2) requires the competent authority to approve such a proposal if it is satisfied that there are adequate and reasonable grounds for such proposal. The two words "adequate and reasonable" in our opinion furnish sufficient guidelines. The competent authority can interfere if there are no material at all for sustaining the order of punishment or when on the materials found the charge is completely baseless and perverse. The word "adequate" in sub-section wil! have to be understood as being confined to such examination of the proposal. The word "reasonable" would indicate the power of the competent authority is confined to the power of an authority to inter-

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1002

SUPREME COURT REPORT5

(1980] 2 s.;;.R ..

fere with the enquiry and conclusions arrived at by the domestic Tribu nal. The competent authority may satisfy itself that the rules of natural . Justice has been satisfied, that the teacher was given an opportunity to defend the charges against him and to show cause against the punish ·ment proposed to be awarded to him and that a fair procedure has . been observed. The authority may also be entitled to interefere when the punishment was imposed by the institution due to ma/a fides er with a view to victimised. him or such like grounds. The word "reaso nable" cannol be nnderstood as conferring a power to interfere with the enquiry by the domestic tribunal as· a Court of Appeal on merits. The law relating to the circumtances under which the proceedings of the tribunal can be interferred with has been clearly laid down. Sufficient guidelines are discernible from the Statements of objects and reason which state that the enactment was for the purpose of preven ting private institutions from talcing disciplinary action on flimsy grounds without framing charges and with.out giving an opportunity to explain and for regulating the service conditions of teachers and for ensuring their security of service. W re are satisfied that sufficient guidelines are indicated in the Act. The.words "adequate and reasonable" should be given a restricted meaning so as to validate the pr,ovisions of the section. Thus, understood, the objecti6n raised by . Mr. Lal Narain Sinha, !earned counsel for the appellant, that S.3 (1) and (2) lack guidelines and have conferred a blanket power, cannot be uphold.

It was next contended by Mr. Lal Narain Sinha that no question of principles of natural justice arised when the conditions of· service between the institution.and the teacher are regulated by contract. We are unable to accept this contention for the legislature is competent to enact provisions limiting the power of dismissal and removal. The Legislature has given security of service ·to employees in industries and in other institutions. It Wl!S submitted by the learned counsel that the offence of misconduct has not been clas·sificd in the Act and that no pro cedure for conducting disciplinary enqui,Y. has been prescribed. Such · d<!tails are not essential. It is within the jurisdiction of the institution to conduct an enquiiy and impose punishments. It is also the right of the 'competent authority to withhold approval on adequate and reasonable grounds. The plea that the competent authority may be any petty officer cannot also ]Je upheld as the competent authority is defined under S.2(1) as meaning any auth,ority. officer or person authorised by noti- fication performing the functions of competent authority under this Act. The competent authority or officers of the educational department who are incharge of administration of educational institutions in the area, cannot be. called petty officers.

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ALL SAINTS HIGH SCHOOL v. GOVT. OF A.P. (Kailasam, !.) I 003

Section 3(3) (a) am! 3(3)(b) relate to suspension of a teacher Sub. s.3(a) requires that a teacher employed in a private institution shall not be placed under suspension. Without an enquiry into the gross-misconduct of such teacher is contemplated and sub. s.3(b) re quires that the period of suspension shall n,<Yt exceed two months. If it exceeds two months and the enquiry is not completed within that period, such teacher shall, without prejudice to the enquiry, he deemed to have been restored as teacher. But the proviso enables the autho- rity to extend the period of suspension for another two months if in his opinion the enquiry could not be completed within the period of two months. Sub. ss.(a) & (b) of S. 3 which relate to suspension are regu latory in nature and are intended to safeguard the teachers from being suspended for unduly long periods without there being an enquiry into gross misconduct. We arc unable to say that these provisions interfere with the right of administration of the private institutions. S.3 ( 4) states that every teacher placed under suspension shall be paid subsis tence allowance at "1ch rates as may be prescribed during the period cf his suspension. This sub-section is purely regulatory in nature and unobjectionable.

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S.4 confers a right of appeal against the order of punishment im posed on teachers employed in private educati,onal institutions. A tea- cher who is dismissed. removed or reduced in rank or whose appoint ment is otherwise terminated or whose pay and allowances' or any of E the whose conditions of service arc altered ,or interpreted to his dis advantage may prefer an appeal to such authority as may be prescribed. This section was challenged by Mr. L. N. Sinha, learned counsel, on the ground that the right of appeal conferred is a blanket power without any restriction. In any event, the submission that the right of appeal is conferred only on the teacher and not on the institution. Though NO restriction arc placed on the appellate power, we feel it may be possi- ble to read down the section. But the learned counsel is on firm ground when he submits that the right of appeal is confined only to the teachers and not available to institution. This infirmity invalidates S.4.

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Section 5 is consequential of S.4 in which power is conferred on the G

competent authority to hear appeal in certain past disciplinary cases. S.5 also will have to fail alongwith S.4. S.6 relates to retrenchment of teachers under certain conditions. It provides that when any retrench ment is rendered necessary, consequeut on any order of the Govern ment relating to educational institutions ,or course of instruction or any . other matter such retrenchment may be effected with the prior appro- val of the competent authority. This section is also intended to pro- vide security of service of the teachers and is regulatory in nature and

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1004

~I rrPE!\.1E CC.l.iRT REPORT'}

i.1Y~~(:j 2 S.(.'.R.

!he validity of which cannot be qnestioncd. S. 7 requires the pay and all,o'wances of any teacher employed in any private educational institu tion shall be paid on or before such day of every month, in such manner and by or through such authority, officer or person as may be prescrib ed. This section is also regulatory in nature and is mtcnded for secur ing regular payment of the teachers.

The validity of other sections was not questioned in the writ peti

tions, and, therefore, it is not permissible to go into it.

In the view we have taken, we do not think that we should go into the merits of each of the cases. In C.A. No. 1280 of 1978-The All Saints High School Hyderabad v. The Govt. of ,Jndhra Pradesh and Ors.-the learned cow1sel appearing for the school before the High Court sought the decision only on the legal issues and the questions emanating from the provisions of the Act and specifically requested the court not to decide the merits of the case. In some of the petition the facts have been gone into but we would refrain from going into the facts for it has to be decided as to whether the competent autho- rity has acted within the restricted jurisdiction which have been stated If the competent authority bad exceeded its with in our judgment. jurisdiction, it would be apen to the aggrieved institution to question the validity of such action. These matters will have to be decided on merits. In the circumstances, we remit all the Civil Appeals to the High Court for disposal on merits in the light of this Judgment.

ORDER

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the Andhra

Pradesh Recognised Private

In the view of the majority, sections 3(3) (a), 3(3) (b), 6 and 7 of Educational Institutions Control Act, 1975 are valid while sections 3(1), 3(2), 4 and 5, of the Act are invalid in their application to minority educa tional institutions. It must follow that such institutions cannot be pro ceeded against for violation of provisions which are not applicable to them. The matters are remanded to the High Court of Andhra Pradesh for final disposal on merits in the light of the judgments.

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There will be no order as to costs.

N.K.A.