Consti 1.docx

TABLE OF CONTENTS 

INTRODUCTION



ARTICLE 29(1)



ARTICLE 29(2) (a) AMBIT OF ARTICLE 29(2) (b) DISTICTION BETWEEN 29(2) AND 15(1)



ARTICLE 30(1)



ARTICLE 30(2)



RELATION BETWEEN ARTICLE 29 AND 30



RIGHT OF A RECOGNITION OR AFFILIATION NOT A FUNDAMENTAL RIGHT



RIGHT OF NON MINORITIES TO RUN EDUCATIONAL INSTITUTIONS



CONCLUSION

Introduction Articles 29 and 30 of the Constitution are grouped under the heading "Cultural and Educational rights". These both Articles protect and guarantee certain collective rights for the minorities to help them preserve their language, religion and culture. These rights also contribute to preserve the rich diversity of the country and give minority a sense of security. Over the decades, the interplay of these two Articles has been the cause of intense debate, Firstly, touching on issues such as secularism and secondly, the degree of control over private educational institutions maintained by the State or receiving aid out of State funds; on grounds only of religion, race, caste, language or any of them. This chapter begins with the discussion of rights guaranteed under Articles 29 and 30 of the Constitution of India. Further it discusses judicial approach relating to each Sub Clause of Articles 29 and 30. Subsequently, the researcher has discussed the judicial interpretation relating to the relation between Articles i.e. 29 and 30. Article 29(1) deal with right of any section of the citizens residing in India to preserve their language, script or culture. In order to invoke Article 29(1), all that is essential is that a section of the citizens, residing in India should have a distinct language, script or culture of its own. If so, then they will have the right to conserve the same. Article 29(2) prohibits discrimination in matters of admission into educational institutions on grounds only of

religion, race, caste, language or any of them. This provision guarantees the rights of individual irrespective of the community to which he belongs. Article 30 (1) provides that all religious and linguistic minorities have the right to establish and administer educational institutions of their choice. Article 30(2) prevents States from 142 making any discrimination against any educational institution in granting aid on the ground that it is managed by a religious or linguistic minority. Article 29(1): Rights of citizens to preserve their language, script and culture. Article 29(1) is not subjected to any reasonable restrictions. The right conferred upon the citizens to conserve their language, Script and culture is made absolute by the Constitution. In D. A.V College Jullunder v State of Punjab’s case1, it was held that were a legal provision required the Guru Nanak University to promote studies and research in Punjabi language and literature, and to undertake measures for the development of Punjabi language, literature and culture, did not infringe Article 29(1). The Supreme Court had emphasized that the purpose and object of the linguistic States, which has come to stay in India, is to provide greater facility for the development of the people of the area educationally, socially and culturally in the regional language. The concern State or the University has every right to provide for the education of the majority in the regional medium. This right however is subject to restrictions contained in Articles 25 to 30. Promotion of the majority language does not mean stifling of minority language and script. To do so will be to trespass on the rights of those sections of the citizens which have distinct language or script which they have right to conserve through their own educational institutions. The provision in question cannot, therefore be read as requiring the minority institutions affiliated to Guru Nanak University to teach in Punjabi language, or in any may impeding their right to conserve their language, script and culture. The Supreme Court observation in the case was: “The provision, as we construe it, is for the promotion of Punjabi studies and research and development of the Punjabi language, literature and culture which is far from saying that the University can under that provision compel the affiliated colleges particularly those of the minority to give instruction in the Punjabi language, or in any way impede the right to conserve their languages, script and culture.” The legal provisions of University that was challenged on the ground that the colleges administered by other religious minorities, i.e., Arya Samaj, and affiliated to the University would be compelled to study the religious teaching of Guru Nanak and such provisions amounted to violation of fundamental right under Article 29(1). The Supreme 1

AIR 1971 SC 1737 143

Court rejected the argument saying that there is no mandate in the provision compelling affiliated colleges either to study the religious teachings of Guru Nanak, or to adopt in any way the culture of the Sikhs. If the University makes provision for an academic and philosophical study and research on the life and teachings of a saint, it cannot be said that the affiliated colleges are being required to compulsorily study his life and teachings. Article 29(2): Right of the citizen not to be denied admission into any State maintained or State aided educational institution. The right guaranteed under this Article is not restricted to minorities but extends to all citizens whether belonging to majority or minority. In State of Bombay v Bombay Education Society’s Case2 held that limiting this right only to minority groups will amount to holding that the citizens of the majority group have no right to be admitted into an educational institution for the maintenance of which they contribute by the way of taxes. In Ravneet Kaur v Christian Medical College, Ludhiana’s Case,3 the Court held that a private institution receiving aid from the State cannot discriminate on grounds of religion, caste, race language or any of them. Ambit of Article 29(2) In State of Madras v Champakam’s Case,4 for the first time the question of application of Article 29(2) was challenged. The communal Government Order of the State of Madras allotted seats in medical and engineering colleges in the State proportionately to the several communities, viz, non-Brahmin Hindus, Backward Hindus, Brahmins, Harijans, Anglo Indians, Christians, and Muslims. A Brahmin candidate who could not be admitted to an engineering college challenged the Government Order as being inconsistent to Article 29(2). The Supreme Court held that the classification in the Government order was based on religion, race and caste which were inconsistent with Article 29(2). Even though the petitioner had got much higher marks than secured by many non-brahmins who were admitted in the seats allotted to them, he could not be admitted into any institution. The only reason for the denial of admission to him was that he was a Brahmin and not a nonBrahmin.

2

AIR 1954 SC 561 AIR 1998 P&H 1 144 4 AIR 1951 SC 226 3

In the State of Bombay v Bombay Education Society,5 an order issued by the Bombay Government banning admission of those whose language was not English to a school using English as a medium of instruction, was declared invalid under Article 29(2). The Government had argued that the order did not debar citizens from the admission into English medium schools only on the ground of religion, race, caste, language, but on the ground that such denial would promote the advancement of the national language. Rejecting the contention the Supreme Court pointed out that the argument over looked the distinction between the object underlying the order was laudable but even then its validity had to be judged by the method of its operation and its effect on the Fundamental Rights guaranteed under Article 29(2). The immediate ground for denying admission in English schools to pupils whose mother tongue was not English was only language and so order could not be upheld. Thus, discrimination in matters of admission on the basis of language was vetoed by the Supreme Court under Article 29(2). DISTICTION BETWEEN 29(2) and 15(1) Article 15(1) of the Constitution also prohibits discrimination on grounds of religion, race, caste,sexorplace of birth. However, it differs from Article 29 (2) in many respects:

(I) Art. 15 protects all citizens against the State whereas the protection of Art29(2) extends against the State, or anybody else who denies the right conferred by it. (2) Art. 15 protects all citizens against discrimination generally while Art. 29 (2) is a protection against a particular species of wrongs, namely, denial of admission into educational institutions of the types mentioned therein. (3)Article 15 is quite general and wide in its terms and applies to all citizens whether they belong to the majority or minority groups and gives protection to all citizens againist discrimination by the State on certain specific grounds.Article 29(2) confers a special right on citizens for admission into educational institutions maintained or aided by the State

(4) Art. 15 (1) prohibits discrimination on the grounds of sex or place of birth whereas Art. 29 (2) does not mention these grounds.! Thus under Article 29 (2) a girl The right to admission into an education institution conferred by Article 29 (2) is a 5

AIR 1954 SC 561 145

student

can

be

denied

admission

in

educational

institutions.

tye right to admission into an education institution conferred by Article29(2) is a right of an individual given to him as a citizen and not as a member of any community

At. 15 (1) is broader in scope and applies to those cases also where Article 29(2) is not applicable. Thus, refusal to adrnit a person in educational institution on the ground of sex or place of birth will be invalid under Art. 15 (I) but will not be under Art29(2).

Art 29(2) is quite general and wide in terms and applies to all citizens whether they

belong

to

majority

or

minority

groups.

Therefore,

school

run

by a majority,if it is aided by state funds, cannot refuse admission to boys belonging to other communities.The state cannot direct such school to restrict admission to their own community.In State of Madras v. Champakam Dorairajan6 an order of Madras Government had fixed the proportion of students of each community that could be admitted into the State Medical and Engineering Colleges. The order was challenged on the ground that it denied admission to a person only on the ground of religion or caste The petitioners in this case were denied admission only because they were Brahmins.The Supreme Court held the order invalid for being violative of Article 29 (2).

After this case. Article 15 (4) was amended by the Constitution (1st Amendment) Act, 1951. The amendment empowers the State to make special provision for the advancement of any socially and educationally backward classes of citizens or the Scheduled Castes and the Scheduled Tribes. Accordingly the State can now reserve seats in public

institutions

for

members

of

backward

classes.

In State of Bombay v. Bombay Educational Society7, the Supreme Court struck down an order of the Bombay Government banning admission of those whose language was not English into schools having English as a medium of instruction because it denied admission solely on the ground of language. The order, the Court said, would not be valid, even if the object for making it was the promotion or advancement of national language.

6 7

AIR 1951 SC 226 AIR 1954 SC 561

The protection of Article 29 (2) does not apply where the student is expelled from an institution on grounds of indiscipline, or where he is refused admission on grounds of his

not

possessing

requisite

qualifications.

Article 30(1): Rights of minorities to establish and administer educational institutions of their choice. Article 30 (1) gives the linguistic or religious minorities the following two rights: i)

Right to establish, and

ii)

ii) Right to administer educational Institutions of their choice.

This benefit is extended to only linguistic and religious minorities and to no other section of the Indian Citizens. The word ‘or’ means that a minority may either be linguistic or religious and that it does not have to be both- a religious minority as well as linguistic minority. It is sufficient of it is one or the other or both. While interpreting Article 30 of the Indian Constitution the question of relative degree of autonomy and permitted area and extent of regulation of minority educational institutions has been one important issue to be resolved by the judiciary during the past six decades. In re Kerala Education Bill case8 Supreme Court held that Article 30(1) covers institutions imparting general secular education. The object of Article 30(1) is to enable children of linguistic and religious minorities to go out in the world fully equipped. Protection guaranteed to minority under Article 30 is to preserve and strengthen the integrity and unity of the country. The sphere of general secular education will develop the commonness among the students of the country. This is in true spirit of liberty, equality, and fraternity through the medium of education. The minorities will feel isolated and separated if they are not given the protection under Article 30. In Sidhrajbhai’s Case9, it was held that under Article 30(1) fundamental right declared is in term absolute and is not subject to reasonable restrictions. It is intended to be a real right for the protection of minorities in the matter of setting up of educational institutions of their choice. The right is intended to be effective and not to be whittled down by so-called regulatory measures conceived in the interest not of the minority educational institution, but

8 9

AIR 1958 SC 956 146 AIR 1963 SC 540

of the public or the nation as a whole. The learned Judges had held that, “Regulations which may be lawfully be imposed either by legislative or executive action as a condition of receiving grant or recognition, must be directed to making the institution, while retaining its character as a minority institutions, effective as an educational institution. Regulations must satisfy a dual test- the test of reasonableness, and the test that it is regulative of the educational character of the institutions and is conducive to making the institution an effective vehicle of education for the minority community or other persons who resort to it.” In Rt. Rev Mark Netto v State of Kerala,10 the Supreme Court held that refusal of Regional Deputy Director of Public Instruction to admit girl students was violative of Article 30(1). The principle that can be deduced from these decisions is that Article 30(1) is absolute in terms and said right cannot be whittled down by regulatory measures conceived in the interest not of minority institutions but of the public or the nation as a whole. In D. A. V. College Jullunder v State of Punjab11 the Court held that a linguistic minority for the purpose of Article 30(1) is one which has separate spoken language. It is not necessary that language should also have separate script. India has number of languages which do not have script of its own but nonetheless, people speaking such a language will constitute a linguistic minority to claim protection of Article 30(1). In Ahmedabad St. Xavier’s College v State of Gujarat12, Supreme Court has pointed out that the spirit behind Article 30(1) is the conscience of the nation that the minorities, religious as well as linguistic, are not prohibited from establishing and administrating educational institutions of their choice for the purpose of giving their children the best general education to make them complete men and women of the country. The Supreme Court in S. K. Patro v State of Bihar13 ruled that a minority claiming privilege under Article 30 should be minority of persons residing in India. Foreigners not residing in India do not fall within the scope of Article 30(1). Residents in India and forming the well define religious or linguistic minority fall under the protection of Article 30. Further, Article 30(1) does not expressly refer to citizenship as a qualification for the members of the minorities. The fact that funds have been obtained from outside India for setting up and developing a school is no ground for denying to it protection under Article 30(1).

10

(1979) 1 SCC 23 147 AIR 1971 SC 1737 12 AIR 1974 SC 1389 13 AIR 1970 SC 259 11

T.M.A Pai Foundation v State of Karnataka14, over ruled the proposition that no regulation can be cast in the interest of the nation if it does not serve the interest of minority as well. Justice Kirpal C. J. had ruled, that “any regulation framed in the national interest must necessarily apply to all educational institutions, whether run by majority or minority. Such a limitation must necessarily be read into Article 30. The right under Article 30(1) cannot be such as to override the national interest or to prevent the Government from framing regulations in that behalf. Court further was of the view that no right can be absolute. Whether a minority or a non minority, no community can claim its interest to be above national interest. The words ‘Establish’ and ‘Administer’ in Article 30(1) have been read conjunctively. Therefore, a minority can claim a right to administer an educational institution only if it has established by it but not otherwise. A religious minority cannot claim the right to administer an educational institution establish by someone else, merely because, for some reason or other, it had been administering the institution before Constitution came into force. In, The Manager, St. Thomas U. P. School, Kerala v Commissioner’s Case15, it was held that Article 30(1) postulates that the religious community will have the right to establish and administer educational institutions of their choice meaning thereby that where a religious minority establishes an educational institution, it will have the right to administer that. The right to administer has been given to the minority, so that it can mould the institution as it thinks fit, and in accordance with its ideas of how the interest of the community in general, and the institution in particular, will be best served. For purposes of Article 30 (1), even a single philanthropic individual from the concerned minority can found the institution with his own means. In State of Kerala v Reverend Mother Provincial’s Case16, construing Article 30 (1), Hidayatullah C. J. held that, ‘It matters not if a single philanthropic individual with his own means, founds the institution or the community at large contributes the funds. The position in law is the same and the intention in either case must be to found an institution for the benefit of a minority community by the member of that community.’

14

(2002) 8 SCC 481 148 (2002) 9 SCC 497 16 (1970) 2 SCC 417 149 15

In S. Azeez Basha v Union of India17, it was held that the Aligarh Muslim University was established by the Central legislature Act of 1920. It could not therefore be said to have been establish by the Muslim community. No degree granting institution can be established in India without a statute. Accordingly, the validity of a statute regulating administrative arrangements in the University could not be adjudged under Article 30(1). The material factor to attract Article 30(1) is the establishment of the institution by the minority concerned. The Article 30(1) clearly shows that the minority will have the right to administer the institutions of their choice provided they have established them, but not otherwise. It is a matter of proof through production of satisfactory evidence that the institution in question was established by the minority claiming to administer it. The proof of the fact of establishment of the institution is a condition precedent for claiming the right to administer the institution. The onus lies on one who asserts that an institution is a minority institution The Courts may have to decide whether the institution is minority institution. In, S. P. Mittal v Union of India18 the Supreme Court laid down that in order to claim the benefit of Article 30(1), the community must show a) that it is a religious or linguistic minority, b) that the institution was established by it. Without satisfying these two conditions it cannot claim the guaranteed rights to administer it. In Yogendra Nath Singh v State of Uttar Pradesh,19 the Government recognized the institution as a minority institution. This order was challenged in the High Court through a writ petition. Looking into the antecedent history of the institution right from its inception, the Court concluded that the institution was not established as a minority institution, and, therefore, it could not be granted minority status even though presently it was being managed by the minority community. Under Article 30(1), the requirements of establishment and management have to be read conjunctively. The twin requirements are needed to be fulfilled and in the absence of one, an institution cannot be given minority status. The minority educational continues to be so whether the government declares it as such or not. When the government declares the institution as a minority educational institution, it merely recognizes a factual position that the institution was established and is administered by the minority community. The declaration is merely an open acceptance of the legal character of the institution which must 17

AIR 1968 SC 662 AIR 1983 SC 1 150 19 AIR 1999 All 356 151 18

necessarily have existed antecedents to such declaration. Such a declaration is neither necessary nor decisive of the character of the institution in question as a minority educational institution. The final word in this regard rests with the courts. It is ultimately for the court to decide whether the institution in question is a minority institution or not. Even if Government has recognized an institution being as minority educational institution does not immunize the institution from judicial scrutiny of its antecedents. The government decision is not binding and it is ultimately for the court to decide whether the institution in question is a minority institution or not. In Andhra Pradesh Christian Medical Association v Government of Andhra Pradesh,20 the Supreme court has asserted that the Government, the University and ultimately the Court can go behind the claim that the institution in question is a minority institution and to investigate and satisfy itself whether the claim is well founded or ill founded. The Government, the University and ultimately the Court have undoubted right to pierce the minority veil and discover whether there is lurking behind it no minority at all and in any case no minority institution. The Supreme Court emphasized that the object of Article 30 (1) is not to allow bogies to be raised by pretenders. The institution must be an educational institution of minority in truth and reality and not mere masked phantoms. In this case, the Court held that the institution in question was not a minority institution. The Court clarified that the protection of Article 30(1) is not available if the institution is mere cloak or pretension and the motive was business venture. The institution was started to make money from gullible persons anxious to obtain admission to professional colleges. So, the court refused to treat it as a minority educational institution. A minority institution may impart general secular education; it need not confine itself only to the teaching of minority language, culture or religion. Minority institution to be treated as one, it must be shown that it serves or promotes in some manner the interests of the minority community by promoting its religious tenets, philosophy, culture, language or literature. Article 30(1) gives right to minority community as such and not to an individual member, and the right is meant to benefit the minority by protecting and promoting its interest. A considerable section of the minority must be benefited by the institution. In order to claim the benefit of minority institution it has to show that it any manner it serves or promotes the interest of the minority to which it claims to 20

AIR 1986 SC 1490 152

belong. In Andhra Pradesh Christian Medical Association v State of Andhra Pradesh,21Supreme Court emphasized upon that, ‘What is important and what is imperative is that there must exist some real positive index to enable the institution to be identified as an educational institution of the minorities.’ In Sree Jain Swetamber Terapanthi Vidyalaya v State of West Bengal22, the High Court of Calcutta held that the school was entitled to the benefit of Article 30 (1) , Since the school was established by the Jain Swetamber Sect. The members of the sect donated considerable amount for the establishment of the institution. The school was run to promote the culture and religious tenets of the primarily along with secular education imparted to the pupils and majority of the pupils belonged to the Jain Swetamber sect. The educational institution established by linguistic minority i.e. Gujarati, where the medium of instruction was Gujarati and 80% of the teachers were Gujarati – speaking. The Court in Indulal Hiralal Shah v S. S. Salgaonkar,23 characterized the institution as minority institution. Admitting non Gujarati students did not affect the minority character of the institution. In St Stephen’s College v University of Delhi’s Case,24 Supreme Court held that Article 30(1) does not mean that the minority can establish an educational institution solely for the benefit of its own community people. The minorities are not entitled to establish such institutions for their exclusive benefit. The Court observed that, ‘Every educational institution irrespective of community to which it belongs is a ‘melting pot’ in our national life and that it is essential that there should be a proper mix of students of different communities in all educational institutions. This means that a minority institution cannot refuse admission to students of other minority and majority communities. The right of religious and linguistic minorities to administer educational institutions of their choice, though couched in absolute terms, is not free from regulations because it is necessary that even the minority institutions must be subjected to some administrative control without impairing their identity or independence as minority institutions. For the application of this right, minority institutions are divided into three classes: 21

AIR 1986 SC 1490 AIR 1982 Cal 101 23 AIR 1983 Bom 192 24 AIR 1992 SC 1630 153 22

a) Institutions which neither seek aid nor recognition from state; b) Institutions that seek aid from the state; and c) Institutions which seek recognition but not aid. While the institutions which neither seek aid nor recognition from the State cannot be subjected to any regulation except those emanating from the general laws of the land such as labour, contract or tax laws. The institutions that seek recognition only and not aid could be subjected to regulations or restrictions pertaining to the academic standards and better administration of the institution in the interest of that institution itself. Regulations and restriction for any other purpose are not permissible.

Article 30(2): Bars the State from discriminating in granting aid Article 30(2) bars the State, while granting aid to educational institutions, from discriminating against any educational institution on the ground that it is under the management of linguistic or religious minority. Article 30(2) mandates that in granting aid to educational institutions, the state shall not discriminate against any educational institution on the ground that it is under the management of a minority, whether based on religion or language. Minority educational institutions, under Article 30 (2), cannot claim State aid as matter of right. Minority educational institutions are entitled to get financial 154 assistance much the same way as the educational institutions run by majority community. The state is bound to maintain equality of treatment in granting aid to educational institutions. Minority institutions are not to be treated differently while giving financial assistance. Relation between Article 29 and 30 The Supreme Court has consistently held that the right to establish and administer an educational institution under Article 30(1) is not confined only to purpose specified under Article 29(1). Though an educational institution may serve as a means for conserving script, language and culture as mentioned in Article 29(1), but Article 30(1) enables the religious and linguistic minority to establish an institution which may have no concern with the object of conserving its script, language or culture. The words “of their choice’ occurring in the Article 30(1) does not put any limitation on any particular type of educational institution and

includes the right to impart general secular education also for enriching the children of minorities intellectually, morally and financially and enabling them to face the realities of life. The width of Article 30(1) cannot be cut down by imposing into it the consideration on which Article 29(1) is based because firstly, if the educational institutions referred to in Article 30(1) must only be those institutions which has been established for the purpose of language, script or culture then it will render Article 30(1) redundant, for this Article also grants rights to a religious minority to establish an educational institution which may be wholly unconnected with the conservation of language, script or culture. eg. A religious minority may impart purely religious education in its institution. Secondly, While the right under Article 29(1) are available to “any section of citizens” whether belonging to majority or minority, Article 30(1) applies to “all minorities whether based on religion or language” and no other section of citizen can claim this right. Thirdly, while educational institution falling under 29(1) can be set up only for conserving language, script or culture, where as 155 Article 30(1) enables the religious and linguistic minorities to establish and administer any type of educational institution of their choice. The Court in Rev. Father Proost v State of Bihar25 said that the width of Article 30 could not be cut down by introducing any consideration on which Article 29(1) is based. Article 29(1) is a general protection given to sections of citizens to conserve their language, script or culture. Article 30(1) is a special right to minorities to establish educational institutions of their choice. This Court said that the two Articles create two separate rights though it is possible that the rights might meet in a given case. A.N. Ray, C.J. in St Xavier’s Case26 held that under Article 30(1) minority is not restricted to establish and administer educational institutions of their choice only to cases where such institutions are concerned with language, script or culture of the minorities. They reasons cited by him were First, Article 29(1) confers the fundamental right on any section of the citizens which will include the majority section whereas Article 30(1) confers the right on all minorities. Second, Article 29(1) is concerned with language, script or culture, whereas Article 30(1) deals with minorities of the nation based on religion or language. Third, Article 29(1) is concerned with the right to conserve language, script or culture, whereas Article 30(1) deals with the right to establish and administer educational institutions of the 25 26

(1969) 2 SCR 73 AIR 1974 SC 1389 156

minorities of their choice. Fourth, the conservation of language, script or culture under Article 29(1) may be by means wholly unconnected with educational institutions and similarly establishment and administration of educational institutions by a minority under Article 30(1) may be unconnected with any motive to conserve language, script or culture. A minority may administer an institution for religious education which is wholly unconnected with any question of conserving a language, script or culture. All nine judges were unanimous in their opinion that Articles 29(1) and 30(1) deal with distinct matters and may be considered supplementing each other so far as certain cultural rights of minorities are concerned. If the scope of Article 30(1) is to establish and administer the educational institutions to conserve language, script or culture of minorities it will render Article 30 superfluous. If rights under Articles 29(1) and 30(1) are the same then the consequence will be that any section of citizens not necessarily linguistic or religious minorities will have the right to establish and administer educational institutions of their choice. The scope of Article 30 rests on linguistic or religious minorities and no other section of citizens of India has such a right. The right to establish and administer educational institutions of their choice has been conferred on religious and linguistic minorities so that the majorities who can always have their rights by having proper legislation do not pass a legislation prohibiting minorities to establish and administer educational institutions of their choice. If the scope of Article 30(1) is made an extension of the right under Article 29(1) as the right to establish and administer educational institutions for giving religious instruction or for imparting education in their religious teachings or tenets, the fundamental right of minorities to establish and administer educational institution of their choice will be taken away. In Catena of decisions by various High Courts and Supreme Court, the Court has interpreted the law contained in Articles 29(2) and 30(1) and their interrelation without any unanimity. In some cases judicial interpretation of the Court is that minority institutions that receives government aid are bound by Article 29(2). Other interpretation is that minority institutions which are receiving government aid while admitting students from their own communities in the institutions established by them are free to admit students from other communities. The students of other communities may even belong to majority. Admission of such students in the minority institutions does not destroy the minority character of the institutions. In some

cases interpretation given by the judiciary is that there can be no communal reservation for admission in Government or Government aided institutions. In, Ashu Gupta v State of Punjab,27 the Court held that unaided minority institutions have complete freedom to select their students. It held that all minority institutions not receiving aid from the government were wholly out of the ambit of Article 29(2)’. In State of Bombay v Bombay Education Society,28 the Court held that, Article 29 (1) gives protection to any section of the citizens having distinct language, script or culture by guaranteeing their right to conserve the same. Article 30(1) secures all minorities, whether based on religion or language, the right to establish and administer educational institution of their choice. Article 29(2) is not designed for the protection of minority. Article 29(2) confers a special right on citizens for admission into educational institutions maintained or aided by the State. To limit this right only to the citizens belonging to minority groups will be to provide a double protection for such citizens and to hold that the citizens of the majority group have no special educational rights in the nature of a right to be admitted into an educational institution for the maintenance of which they make contributions by the way of taxes. In State of Kerala v Very Rev. Mother Provincial,29 the Court held that it is permissible that minority institution while admitting students from its community may also admit students from majority community. Admission of such non-minority students would bring income and these students need not be turned away to enjoy protection. The principle that can be deduced from these decisions is that a minority educational institution while admitting members from its own community is free to admit students from the nonminority community also. In Re Kerala Education Bill Case,30 the Court held that there is no such limitation in Article 30(1) on the part of minority institutions that they cannot admit students from other communities. To accept such limitation will necessarily involve the addition of the words “for their community” in the Article which is ordinarily not permissible according to the well established rules of interpretation. Nor is it reasonable to assume that the purpose of Article 29(2) was to deprive minority educational institutions of the aid they receive from the State. 27

AIR 1987 P&H 227 AIR 1954 SC 561 29 (1970) 2 SCC 417 30 AIR 1958 SC 956 28

To say that an institution which receives aid on account of its being a minority educational institution must not refuse to admit any member of any other community only on the grounds therein mentioned and then to say that as soon as such institution admits such an outsider it will cease to be a minority institution is tantamount to saying that minority institutions will not remain, as minority institutions, be entitled to any aid. The real import of Article 29(2) and Article 30(1) seems to us to be that they clearly contemplate a minority institutions with a sprinkling of outsiders admitted into it. By admitting a non-member into it the minority institution does not shed its character and cease to be a minority institution. In D. A. V. College Jullunder v State of Punjab,31 the question relating to Articles 29(2) and 30(1) were considered by the Supreme Court. The Court concluded that a religious or linguistic minority has a right to establish and administer educational institutions of its choice for effectively conserving its distinctive language, script or culture, which right however, is subject to the regulatory power of the State for maintaining and facilitating the excellence of its standards. This right is further subject to 29(2) which provide that no citizen shall be denied admission into any educational institution which is maintained by the State or receives aid out of State funds, on grounds only of religion, race, caste, language or any of them. In St Stephen’s College v University of Delhi,32 the right of minority educational institutions under Article 30 (1) and the applicability of Article 29(2) to an institution to which Article 30(1) was applicable were considered. The Court held that the fact that Article 29(2) applies to minorities as well as nonminorities does not mean that it was intended to nullify the special right guaranteed to minorities in Article 30(1). Supreme Court had held that even a minority institution receiving aid from state funds was entitled to accord preference to or reserve seats for candidates belonging to its own community on the basis of religion or language. However, the Court allowed such institutions to admit students of its own community to the extent of 50 per cent of the annual intake and insisted that such differential treatment must be in conformity with the University's standards. The Court held that differential treatment of students in the admission process did not violate Article 29(2) or Article 14 (equality before law) and it was essential to maintain the minority character of the institution. Minority cannot have an educational institution solely for the benefit of its own community people. It should provide 50 percent seats for the benefit of other communities. 31 32

AIR 1971 SC 1737 AIR 1992 SC 1630

The principle that can be culled out from these decisions is that Article 30(1) is subject to Article 29(2). In T. M. A. Pai’s Case,33 the Supreme Court held that a minority aided institution would be entitled to have the right of admission belonging to the minority group but would be required to admit a reasonable extent of non minority students. State government can notify such percentages for admission for non- minorities. Ratio laid down in St Stephan’s College v University of Delhi is correct but rigid percentage cannot be stipulated. The authorities can stipulate reasonable percentage in accordance to the type of institution, population and educational needs of the minorities. The eleven judges bench held in T. M. A. Pai’s case that denying admission even though seats are available on the grounds of applicant’s religion, race, caste or language is prohibited, but preferring students of minority groups did not violate Article 29(2). Examining the word “only” used in Article 29(2) six judges of the bench Viz. Justices B. N. Kirpal, G. B. Pattanaik, S. Rajendra Babu, K. G. BalaKrishnan, P. Venkatarama Reddi, and Arijit Pasayat said that denying admission to non minorities for the purpose of accommodating minority students to reasonable extent will not be only on the grounds of religion and so on, but is primarily meant to preserve the minority character of the institute and to effectuate the guarantee under Article 30(1). They held that as long as the minority educational institutions permitted the admission of non minorities to a reasonable extent based on merit, it would not be an infraction of Article 29(2), even though the minority educational institute admitted students of the minority group of its own choice for whom it was meant. The Court held, “What would be reasonable extent would depend upon variable factors. And it may not be advisable to fix any specific percentage. The situation would vary according to the type of institution and the nature of education that is being imparted at the institution. A variable percentage of admission of minority depending on the type of institution and education is desirable, and indeed necessary to promote the Constitutional guarantees enshrined in both, Article 29(2) and Article 30(1),” the six judges said. The six judges endorsed the ratio laid down in St Stephen’s Case but removed the 50 percent ceiling fixed in that case. They said that they believed that it would be more appropriate, depending on the level of the institution and the population and educational needs of the area in which 33

(2002) 8 SCC 481

minority educational institute was located, the State properly balanced the interests of all the providing for such a percentage of students of the minority community to be admitted so as to serve adequately the interests of all by providing for such a percentage of students of minority community to be admitted so as to serve adequate the interest of community for which the minority educational institutes were established. Right The

of next

a

recognition

question

which

or arose

affiliation was

not

whether

a

minority

fundamental institutions

right have

a

fundamental right to affiliation. The petitioners contended the right to establish educational institutions of their choice would be without any meaning if affiation was denied. The Court, however, held that there was no fundamental right of minority to affiliation to a University. When a minority institution applies to a university to be affiliated, it expresses its choice to participate in the system of general education and course of instruction prescribed by that university. It agrees to follow the uniform course of study. Therefore, measures which regulate the course of study, the qualifications and appointment of teachers, the conditions of employment of teachers, the health and hygiene of students, facilities for libraries and laboratories are all compared in matters germane to affiliation of minority institutions. These regulatory measures for affiliation or uniformity, efficiency and excellence in educational courses and do not violate any amental right of the minority institutions under Article 30. Though there is no fundamental right to recognition or affiliation, but to deny affiliation or recognition to minority institutions except upon certain terms and conditions amount to the surrender of their right to administer educational institutions of their choice would in effect them

of

their

right

under

Article

30(1).

They may be prescribed not for the excellence but for uniform standard of institutions. A uniform standard is necessary owing to the different calibre of student coming from different developed and undeveloped state of society and from differernt developed and undeveloped geographical regions of the counry. The right under Article 30 (I) is subject to Article 29 (2) which says that no citizen shall be denied admission into any educational institutions maintained or aided by the State on the grounds only of religion race, caste, language or any of them. So a State-aided institution established by minority must not refuse admission to a member of any other community. It does no

cease to be a minority institution only by admitting members of any other community

Mark Netto v. State of Kerala34

the appellant, who was manager of a Roman

Catholic Mission School, Trivendrum for boys, applied to the Education Authorities in Kerala for permission to admit girl students in their High School, although there was already in existence a facility for the education of the girls in the locality (Muslim Girls School). Educational Authorities refused to give sanction for admission of the girl students under Kerala Education Rules, 1959, mainly on the ground that (1) the said school was not established as mixed school and it was purely a boys school and (2) there was also facility for the education of the girls of the locality in the near Musiim girls school situated within radius of one mile. The appellant contended that Kerala Education Rule, 1959, was violative of Art. 30(1) as it interfered with the right of the Christian community to administer educational institution of their choice. He argued that the community in the locality for various reasons wanted their girls also to receive their education in the school of their community, They did not think it in their interest to send them to the Muslim girls schools. The Supreme Court held that the rule was not applicable to the minority education institution. The rule does not authoritise Educational Authorities to refuse permission to admit the girl students of their community in the school

of

it

their

community.

If

the

would

Rule

is

sanction

interpreted

widely the

withholding of permission for admission of girls students in the boys minority school and would thus be violative of Art. 30. If so widely interpreted it crosses the barrier of regulatory measures and comes in the region of interference with the administration of the minority institution. The permission for admission of girls in boys minority school was d not on the ground of any apprehension or deterioration of morality or discipline, if co-education was permitted in the school, but mainly in the interest of the existing Muslim girls school ,and therefore, it violated the freedom guaranteed to minority to administer the educational institution of their choice.

In Lily Kurian v. St. Lewina,35 the validity of the Ordinance 33(4) issued under the 34 35

AIR 1979 SC 83 AIR 1979 SC 52

University Act. 1957 was challenged as violative of Art. 30(1) of the Constitution. Under the Ordinance 33 (4) a teacher had a right to appeal to the Vice-Chancellor against any disciplinary action taken by the Managing Committee of minority educational institution The appellant Smt. Lily Kurian, was appointed as principal of the St. Joseph's Training College for Women, Ernakulam. The College was established by a religious Society of Nuns, belonging to the Roman Catholic Church and was affiliated to the University of Kerala. As a result of certain incidents disciplinary iquiry was held against the appellant and she was found guilty of misconduct. The head of the religious society by virtue of her office as the President of Managing Board dismissed the appellant from service. The appellant filed an appeal before the Vice-Chancellor under Ordinance 33 (4) who quashed the order of dismissal and directed the Management to allow her to function as Principal The Supreme Court struck down the Ordinance 33(4), as it was violative of minorities ight under Article 30(1) of the Constitution. The conferral of a right of appeal to an outside authority like the Vice-Chancellor under Ordinance 33(4) took away the disciplinary power of a minority educational authority. The Vice-Chancellor had power to veto its disciplinary control. This was a clear interference with the disciplinary power of the minority institution. The State may "regulate the exercise of the right to administration but it has no power to impose any restriction" which is destructive of the

In All Saints High School v. Government of A. P36, the appellants, who run minority Christian school, challenged the validity of certain provisions of the Andhra Pradesh Recognised Private Educational Institutions Control Act, 1975. They contended that Sections 3 to 7 of the Act were violative of their right under Art. 30 as they permitted interference

by

the

outside

authority

in

the

internal

administration

of

institution.Section 3(1)& (2) provides that no teacher employed in any private institution shall be dismissed, removed or reduced in rank without the prior approval of the competent authority. If any institution contravenes the aforesaid provision the teacher affected shall be deemed to be in service. Section 3 (3) (a) provides that no teacher affected shall be suspended unless an inquiry is contemplated against him and if inquiry is not completed within two months he shall be deemed to have been restored as a teacher. Under Section 4 a teacher against whom any of the actions mentioned above are taken or his conditions of service are altered may prefer an appeal to such authority or officers as may be 36

AIR 1980 SC 1042

prescribed. Section 6 provides that where any retrenchment is necessary it may be effectod with the prior approval of the competent authority. Section 7 makes provision for payment of pay and allowances of a teacher by such authority or officer as may be prescribed In Managing Board of Milli Talii Mission v. State of Bihar 37, the appellant started

a Teacher's Training College named as the Milli Talimi Mission. In 1977 the college applied to the university for affiliation and recognition. The University authorities inspected the college and recommended for granting affiliation. The Government granted affiliation for three sessions. Thereafter, the College applied for permanent affiliation which was rejected. The High Court quashed this order of refusal and directed the State to dispose of the application for permanent recognition. In 1982 the Education Commission also made a recommendation for grant of affiliation to the appellant College. Despite this no action was taken by the Government and the appellant had to file another writ petition in the High Court in 1983 which was dismissed. The appellant filed appeal before the Supreme Court which directed the Government to grant affiliation. The Government contended that the College suffered from certain infirmities, therefore, the affiliation could not be granted namely, absence of full time teachers, recognised Schools attached to it, running College during evening hours making it impracticable for practical classes. absence of building, libraries and Laboratories. The Supreime Court held that the refusal to grant affiliation on purely illusory grounds without considering the recommendations of the Education Commission and the University authorities was violative of Article 30 hence liable to be set aside . The Court directed the Government to grant affiliation to the ege. There is no fundamental right to claim affiliation. Although the State or University can lay down reasonable conditions for maintaining the excellence of standard of education and insist on courses of study to be followed by institution before they be considered for affiliation, but refusal of affiliation on terms and conditions or situations which practically denies the progress and autonomy of the institution is violative of apart from being wholly arbitrary and unreasonable. Refusal to give affiliation without just and sufficient grounds amounts to violation of Article 30 as its direct consequence would be to destroy the very existence of the institution for the protection of which Article 30 was inserted in the Constitution.

37

(1984)4 SCC 500

In A.P. Christian Medical Educationai Society v. Government of A.P38it has been held that where the minority institution is established not for imparting education to their children genuinely but for commercial purpose the protection of Art. 30 (1) will not be avaiable to such institution. In this case the appellant Society established a medical college as minority institution falsely showing that the Government had given permission. There was nothing in the memorandum of association to indicate that the institution was intended to be a majority institution. Neither the State Government granted permission to the establishment of the medical college nor the University granted affiliation to the institution. The Society admitted students to the medical college without fulfilling conditions under the A.P. Education Act, Osmania University Act. The Court held that the protection of A. 30 (1) will not be available to such institution and declined to give direction to Government to give permission to run the institution and direction to the University to hold examination of students of the institution In St. Stephen's College v. Universiry of Delhi39 the validity of admission programme and the preference given to Christian students by St. Stephen's College was challenged as violative of Delhi University circulars for admission of B.A. and B.Com. courses. For the academic year 1980-81 the College published Admission prospectus which, inter alia, provided that there would be interview prior to final selection for admission to the College. On June 5, 1980 the University issued circular to all affiliated Colleges providing programme of admission. On June 9, 1980 University issued another circular to all Colleges-stating that admission to В.А. courses be based on the merit of percentage of marks secured by students in the qualifying examination. The Supreme Court by majority of 4 to 1 held-The College is not bound to follow the University circulars as it will deprive the College of their minority character. The right to select students for admission is an important facet of administration. This power also can be regulated but the regulation must be reasonable and should be conducive to the minority institutions. The impugned directive of the University to select students on the uniform basis of marks secured in the qualifying examinations would deny the right to the College to admit students belonging to Christian community. Unless some concession is provided to Christian students, they will have no chance of getting admission to the College Minority aided educational institutions may preserve 50 per cent seats for their

38 39

(1986) 2 SCC 667 (1992) 1 SCC 558

community candidates and are entitled to give them preference in admissions as it is necessary to maintain the minority character of institutions. The admission of other community

candidates

shall

be

done

purely

on

the

basis

of

merit.

In St. John's Teachers Training Institute v. State of Tamil Nadu40, the appellant who had been running Teachers Training Institutes in the State of Tamil Nadu challenged the validity of the Recognition Rules made by the Government under the T. N. Minority Schools (Recognition and Payment of Grants) Rules, 1977 as amended by the Order of 1991 on the ground that they were violative of Articles 30 (1) and 14 of the Constitution The Government had refused to recognise these institutes on the ground that they had failed to satisfy the conditions for grant of recognition as provided in the Government order. The Recognition Rules provided for the extent of land sizes of class rooms, cost of with 10,000 books, number of bathrooms, furnitures and laboratory equipments teaching appliances, sports, games, music equipments, play grounds, minimum qualifications for teaching and non-teaching staffs, hostel, staff quarters etc. The High Court reviewed the whole case law on the point and dismissed the writ petition holdi that these conditions were regulatory in nature and framed with a view to promoting excellence of educational standard and ensuring security of the service of teachers and other employees of the institutions. The minority institutions must be fully equipped with educational excellence to keep in step with other institutions. The Supreme Court agreed with the reasonings and conclusions of the High Court and dismissed the special leave petition

In Arya Samaj Shillong v. State of Meghalaya,41 the Gauhati High Court held that e Arya Samaj Hindi Kanya Vidyalaya School in Meghalaya was a minority instituti and therefore the State had no power to change the constitution of the Managing Committee of the school. Arya Samaj in Meghalaya was both linguistic as well as religious minority. It had a distinct entity. Hence, it was held that the notification directing the school to follow instructions the change of the constitution of Managing Committee was unconstitutional and invalid.

40 41

(1993)3 SCC 594 AIR 2001 Gau.47

In C/M St. John Inter College v. Girdharilal42, the respondents, the employees of the appellant's institution, filed the writ petition challenging the order of termination passed by the Management on the ground that the prior approval of the competent authority as required under Section 16-G( 3)(a) of the Uttar Pradesh Intermediate Education Act, 1921 was invalid and inoperative. Regulation framed under the Act required that before termination of an employee from service prior approval of the Inspector of Education must be taken. The appellant was the Management of the minority institution The Supreme Court held-The Regulation which confer blanket power on educational authority would interfere with the disciplinary power of control of the Management Committee of the minority over its employees and would, therefore not apply to the minority institution. The right of minority to administer its educational institutions is not absolute and Regulations can be framed by the State conferring powers on special authority but same should be in consonance with Art. 30(1) and not uncanalised or unguided. Regulation can always be made to maintain educational character and for that purpose to lay down qualifications and conditions of service, to ensure orderly, efficient and sound administration and to prevent maladministrater to ensure efficiency and discipline of the institution and for several other objectives which would be for the benefit of the institution and which would not offend Art. 30 of the Constitution. The Regulation conferred no guidelines for the exercise of powers and therefore was not applicable to the minority institution. Right of non minorities to run educational institutions On the question of whether non-minorities can run institutions in the same way as minorities, the court held-Under Art 19(1)(g) all citizens have the right to establish and administer educational institutions but their rights are subject to constitutional provisions. Clarification

of

certain

points

in

T.М.А.

Pai

Foundation

decision"--After

the 11 Judge Constitution Bench decision in T.M.A Pai’s case it was thought that the controversies regarding minority educational institution was finally settled. But subsequent events showed a different story. It was observed that the principles laid down scope to apply those principles in different ways by various High Courts. The result was that the High Courts were flooded with writ petitions seeking for settlement of several issues

42

AIR 2001 SC 1891

which

remained

unsolved

In Islamic Academy of Education v State of Karnataka43, a 7 Judge bench of the Supreme Court heard these petitions and tried to solve some of issues. But majority decision in this case added certain conditions by way of clarification which were not found in the TM.A. Pai's judgment. This again raised controversies. The majority consisting of Khare, C.J. and Kapadia, J., directed setting up of two committees in each state to one Committee “to give effect to the judgment in the T.M.A. Pai's case and to approve the structure charged by minority institutions, and second Committee to see the tests to be conducted by the institutions. Thirdly, fixation of State ‘quota’ for admissions in respect of unaided professional institutions. Each educational institution must place before the Committee el in advance of the academic year its proposed fee structure for scrutiny by the Committee. The Committce would be at liberty to approve the fee structure or propose some other fee which can be charged by the institute. The fee fixed by the Committee would be binding for a period of three years, and at the end it could apply for revision. Regarding appointment of Committee for conducting tests by the institution, the Court directed that it must be fair and in transparent manner. PA.

İnamdar

v.

State

of

Maharastra44

:

Reservation

in

Private

Educational Institution (majority or minority) violative of Articles 30 and 19 (1) (g)-In spite of the 5 Judge Bench decision in Islamic Academy case the matter rermained unsettled. A number of petitions were filed in the court challenging the direction for setting up permanent committee for regulating admissions and fixing fee structure in unaided minority and non-minority institutions.It was contended that these directions were contrary to the decision in the T.M.A. Pai's case. It was said that the directions for setting up permanent committees for fixing quota and fee structure seriously impinge on the constitutional guarantee of autonomy to minority institutions under Article 30 and to unaided non-minority institutions under Article 19 (1) (g). It was submitted that taking over the right to regulate admission and fee structure of unaided professional institutions is not a reasonable restriction under Article 19 (6) of the Constitution. Conclusion: 43 44

AIR 2003 SC 3736 AIR 2005 SC 3236

It is settled in case of St. Xavier’s College v State of Gujarat45 that Articles 29(1) and 30(1) deal with distinct matters and may be considered supplementing each other so far as certain cultural rights of minorities are concerned. However, the relation between Article 30(1) and Article 29(2) is paradoxical generating confusions like; can minority education institutions deny admission to any student on the basis of religion or language? Whether in admission to minority education institutions, preferences can be given to minority students, overruling the criteria of merit? In large number of cases the court has held that unaided minority institutions have complete freedom to select their students. It held that all minority institutions not receiving aid from the government ‘are wholly out of the ambit of Article 29(2)’. The case of St Stephan’s College46 decided by a bench of five judges of the Supreme Court is a landmark case as far as relation between Article 29(2) and Article 30(1) is concerned. Tackling the issue of admission the Court advocated the theory of melting pot and attempted to strike a balance between the two Articles. It stated, in the nation building with secular character sectarian schools or colleges; segregated faculties or universities for imparting general secular education are undesirable and they may undermine secular democracy. They would be inconsistent with the central concept of secularism and equality embedded in the Constitution. Every educational institution irrespective of the community to which it belongs is a ‘melting pot’ in our national life. The students and teachers are the critical ingredients. It is there they develop respect for, and tolerance of, the cultures and beliefs of others. It is essential therefore, that there should be proper mix of students of different communities in all educational institutions. In the light of all these principles and factors, and in view of the importance which the Constitution attaches to protective measures to minorities under Article 30 (1), the minority aided educational institutions are entitled to prefer their community candidates to maintain the minority character of their institutions subject to, of course, in conformity with the university standard. The State may regulate the intake in this category with due regard to the need of the community in the area which the institution is intended to serve. But in no case such intake shall exceed 50 per cent of the annual admission. The minority institutions shall

45 46

AIR 1974 SC 1389 AIR 1992 SC 1654

make available at least 50 per cent of the annual admission to members of communities other then the minority community.