Supreme Court of India

JAVED AND ORS.versusSTATE OF HARYANA AND ORS.

Citation: 2003 INSC 342
Decided: 30 July 2003
Disposal: Dismissed
Bench: R C LAHOTI

Holding

Sections 175(1)(q) and 177(1) of the Haryana Panchayati Raj Act, 1994 are intra vires and constitutionally valid.

Summary

The petitioners were disqualified from contesting or holding Panchayat offices under Sections 175(1)(q) and 177(1) of the Haryana Panchayati Raj Act, 1994 because they had more than two living children. They challenged the provisions as arbitrary, discriminatory and violative of Articles 14, 21 and 25 of the Constitution. The Court examined whether the classification of persons with more than two children was reasonable, whether it furthered the objective of family welfare, and whether it infringed fundamental rights. It held that the provisions are a valid exercise of the State's legislative competence, serve the public interest of population control, and are consistent with the Constitution. Consequently, all the writ petitions and appeals were dismissed, leaving the disqualification provisions intact.

Issues considered

The classification of persons with more than two living children under Sections 175(1)(q) and 177(1) is arbitrary or unreasonable under Article 14.
Whether the disqualification provision violates the right to life and personal liberty under Article 21.
Whether the provision interferes with freedom of religion under Article 25.
Whether the provisions are within the legislative competence of the State under the Panchayati Raj provisions of the Constitution.

Legislation cited

Constitution of Indias. Article 14, s. Article 21, s. Article 243C, s. Article 243F, s. Article 243G, s. Article 25, s. Article 38, s. Article 46, s. Article 47, s. Article 51A
Haryana Panchayati Raj Act, 1994s. 175(1)(q), s. 177(1), s. 21
Representation of the People Act, 1951s. 123(5), s. 124(5)

Subjects

Panchayati RajDisqualificationFamily planningPopulation controlArticle 14Article 21Article 25Constitutional validityLocal self‑governmentElection law

Judgment

JAVED AND ORS. A
V.

STATE OF HARYANA AND ORS.

JULY 30, 2003

[R.C. LAHOTI, ASHOK BHAN AND ARUN KUMAR, JJ.] B

Panchayats and Zila Parishads:

Haryana Panchayati Raj Act, 1994-Sections 175(/)(q) and 177(1)-
Provisions disqualifying person having more than two children from contesting C
for, or holding elective office in Panchayats-Constitutional validity of-Held:
Provisions intra vires the Constitution being salutary and in public interest-
Constitution of India, 1950-Articles 14, 21 and 25.

Constitution of India, 1950:
D
Article 14-Haryana Panchayati Raj Act, 1994-Sections 175(/)(q) and
177(1)-Provisions disqualifying person having more than two children from
contesting for, or holding elective office in Panchayats-Whether arbitrary,
unreasonable and discriminatory-Held: Persons having more than two living
children and persons having not more than two living children constitute two E
different classes distinguishing one from another based on intelligible differentia
having rational relation to the object of implementation of family planning
programme-Uniform policy of controlling population having far reaching
implication are capable of being implemented in phased manner either at
grass root level or at the top-Panchayats are grass root level of local self-
governance having wider base-Hence, the provisions neither arbitrary nor
unreasonable nor discriminatory-Constitution oflndia, 1950-Article 2430-
Haryana Panchayati Raj Act, 1994-Section 21.

Article 21-Haryana Panchayati Raj Act, 1994-Sections 175(/)(q) and
177(1)-Provisions disqualifying person having more than two children from
contesting for, or holding elective office in Panchayats-Whether violative of
Article 21-Held: No, it is a measure to keep population explosion within
reasonable bounds-Also to be read along with directive principles and
fundamental duties which dictate check on population explosion-Hence, the
provisions not violative of right to life and liberty guaranteed under Article

947
948 SUPREME COURT REPORTS [2003] SUPP. I S.C.R.

A 21-Constitution of India, 1950-Articles 243C, 243F, 243G, 38, 46, 47 and
51-A.

Article 25-Haryana Panchayati Raj Act, 1994-Sections 175(/)(q) and
177(/)-Provisions disqualifYing person having more than two children from
contesting for, or holding elective office in Panchayats-Whether violative of
B Article 25-Held: No, the constitutional guarantee under Article 25 is subject
to public order, morality and health-It, thus, permits legislation in the interest
of social welfare and reform-The provisions being in that direction, not
violative of Article 25.

C The provisions of Section 175(1)(q) and Section 177(1) of Haryana
Panc!Jayati Raj Act, 1994 disqualify from person having more than two
children after one year on the date of commencement of Act from holding
or contesting for specified offices of Panchayat. Writ petitioners and the
appellants were disqualified from contesting for, or holding office of
Panchas/Sarpanchas in view of their having incurred the disqualification
D as provided by Section 175(1 )( q) and Section 177(1) of the Act. Writ
petitioners and appellants have challenged the constitutional validity of
Sections 175(1)(q) and 177(1) on the ground that it is arbitrary, hence
violative of Article 14 of the Constitution; that the disqualification does
not serve the purpose sought to be achieved by the legislation; that the
E provision is discriminatory; that the provision adversely affects the liberty
of leading personal life in all its freedom and having as many children as
one chooses to have, hence violative of Article 21 of the Constitution; and
that the provision interferes with freedom of religion, hence violates Article
25 of the Constitution.

p Appellants and writ petitioners contended that the number of
children which one has, whether two or three or more, does not affect the
capacity, competence and quality of a person to serve on any office of a
Panchayat and, therefore, the ~pugned disqualification has no nexus with
the object sought to be achieved by the Act; that the provision of
disqualification introduced by the State of Haryana is discriminatory since
G similar provision has not been enacted for disqualifying aspirants or
holders of elective or public offices in other institutions of local self-
governance, State Legislatures and Parliament and also in States other
than Haryana; that the fundamental right to life and personal liberty
under Article 21 of the Constitution should include all the varieties of
H rights which go to make up the personal liberty of man including the right
JAVEDv. STATE 949
to enjoy all the materialistic pleasures and to procreate as many children A
as one pleases; that the personal law of muslims permits performance of
marriages with four women for the purpose of procreating children and
any restriction thereon would be violative of right to freedom of religion
under Article 25 of the Constitution; that in the rural population couples
desirous of contesting an election but having more than two living children B
are compelled to give them in adoption; that the impugned disqualification
would hit the women worst as they have no independence and they almost
helplessly bear a third child if their husbands want them to do so; and
that there may be cases where triplets or twins are born on the second
pregnancy and consequently both the parents would incur disqualification
for reasons beyond their control or just by freak of divinity. C

Dismissing the writ petitions and appeals, the Court

HELD: 1. Sections 175(1)(q) and 177 (I) of the Haryana Panchayati
Raj Act, 1994 casting disqualification on contesting for, or holding an
elective office on having more than two children is intra vires the D
Constitution of India. The provisions seek to achieve a laudable purpose
- socio-economic welfare and health care of the masses; are consistent with
the National Population Policy; and are salutary and in public interest;
hence, not violative of Articles 14, 21 and 25 of the Constitution.
(963-B) E
2. Persons having more than two living children are clearly
distinguishable from persons having not more than two living children.
The two constitute two different classes and the classification is founded
on an intelligible differentia clearly distinguishing one from the oth~r. It
is well-defined and well perceptible. The object sought to be achieved by
the legislation is popularizing the family welfare/family planning F
programme which the disqualification enacted by the provision seeks to
achieve by creating a disincentive. Hence, the classification does not suffer
from any arbitrariness. The number of children viz., two is based on
legislative wisdom. It could have been more or less. The number is a matter
of policy decision which is not open to judicial scrutiny. (959-B-C( G

BudhanChoudhryandOrs. v. TheStateofBihar, (1955( I SCR 1045,
referred to.

3. Section 21 of the 1994 Act enumerates the functions and duties of
Gram Panchayat which include Public Health and Family Welfare- H
950 SUPREME COURT REPORTS [2003) SUPP. I S.C.R.

A Implementation of Family Welfare programme. This is consistent with the
National Population Policy, thus family welfare would include family
planning as well. To carry out the purpose of the Act as well as the
mandate of the Constitution the Legislature has made a provision for
making a person ineligible to either contest for the post of Panch or
B Sarpanch having more than two living children. Such a provision would
serve the purpose of the Act ~s mandated by the Constitution. Therefore,
the impugned disqualification does have a nexus with the purpose sought
to be achieved by the Act, hence valid. 1960-A-DI

4.1. A legislation by one of the States cannot be held to be
C discriminatory or suffering from the vice of hostile discrimination as
against its citizens simply because the Parliament or the Legislatures of
other States have not chosen to enact similar laws. If it is held so it would
be violative of the autonomy given to the Centre and the States within
their respective fields under the constitutional scheme. Furthermore, it is
not permissible to compare a piece of legislation enacted by a State in
D exercise of its own legislative power with the provisions of another law,
though it may be pari materia, but enacted by Parliament or by another
State legislature within its own power to legislate. The sources of power
are different and those who exercise the power also differ. Similarly,
legislations referable to different organs of local self-government, that is,
E Panchayats, Municipalities and so on are different. Many a time they are
referable to different entries of Lists I, II and Ill of the Seventh Schedule.
All such laws need not necessarily be identical. Same is the case with the
laws governing legislators and parliamentarians. 1960-G-H; 961-AI

The State of Madhya Pradesh v. G.C. Mandawar, 119551 2 SCR 225;
F The Bar Council of Uttar Pradesh v. The State of U.P. and Anr., fl9731 I
SCC 261; State of Tamil Nadu and Ors. v. Ananthi Ammal and Ors., 11995)
I SCC 519 and Prabhakaran Nair and Ors. v. State of Tamil Nadu and Ors.,
11987) 4 sec 238, referred to.

4.2. A uniform policy may be devised by the Centre or by a State.
G However, there is no constitutional requirement that any such policy must
be implemented in one-go. Policies are capable of being implemented in a
phased manner. More so, when the policies have far-reaching implications
and are dynamic in nature, their implementation in a phased manner is
welcome for it receives gradual willing acceptance and invites lesser
H resistance. Further the implementation in a phased manner is suggestive
JAVED v. STATE 951
neither of arbitrariness nor of discrimination. (961-F-H( A

la/it Narayan Mishra Institute of Economic Development and Social
Change, Patna, etc. v. State of Bihar and Ors., (19881 2 SCC 433 and
Pannalal Bansilal Pitti and Ors. v. State of A.P. and Anr., (199612 SCC 498,
referred to.
B
4.3. To make a beginning, the reforms may be introduced at the
grass-root level so as to spiral up or may be introduced at the top so as to
percolate down. Panchayats are grass-root level institutions of local self-
governance. They have a wider base. There is nothing wrong in the State
of Haryana having chosen to subscribe to the national movement of C
population control by enacting a legislation which would go a long way in
ameliorating health, social and economic conditions of rural population,
and thereby contribute to the development of the nation which in its turn
would benefit the entire citizenry. Thus, no fault can be found with the
State of Haryana having enacted the legislation. It is for others to emulate.
(962-D-E; 963-A) D
5. Right to contest an election is neither a fundamental right nor a
common law right. In view of Part IX of the Constitution, a right to contest
election for an office in Panchayat may be said to be a constitutional right
- a right originating in Constitution and given shape by statute, thus, right E
conferred by a Statute. But even so it cannot be equated with a
fundamental right. Further, there is nothing wrong in the same Statute
which confers the right to contest an election also to provide for the
necessary qualifications without which a person cannot offer his
candidature for an elective office and also to provide for disqualificatious
which would disable a person from contesting for, or holding, an elective F
statutory office. The disqualification on the right to contest an election
by having more than two living children does not contravene any
fundamental right nor does it cross the limits of reasonability. It is a
disqualification conceptually devised in national interest.
1963-D-F; 964-H; 965-A( G
Jyoti Basu and Ors. v. Debi Ghosal and Ors., (19821 l SCC 691;
Jamuna Prasad Mukhariva and Ors. v. lachhi Ram and Ors., 119551 1 SCR
608 and Sakhawat Ali v. The State ofOrissa, (195511SCR1004, referred
to.
H
952 SUPREME COURT REPORTS [2003] SUPP. I S.C.R.

A 6. I. The test of reasonableness is not a wholly subjective test and its
contours are fairly indicated by the Constitution. The requirement of
reasonableness runs like a golden thread through the entire fabric of
fundamental rights. The lofty ideals of social and economic justice, the
advancement of the nation as a whole and the philosophy of distributive
B justice - economic, social and political - cannot be given a go-by in the
name of undue stress on fundamental rights and individual liberty.
Reasonableness and rationality, legally as well as philosophically, provide
colour to the meaning of fundamental rights. [965-E-F[

Mrs. Maneka Gandhi v. Union of India and Anr., [1978[ 1 SCC 248
C and Mis. Kasturu Lal Lakshmi Reddy and Ors. v. State ofJammu and Kashmir
and Anr., [1980[ 4 SCC 1, referred to.

6.2. Article 243C makes provision for the Legislature of State to enact
laws with respect to constitution of Panchayats. The Haryana Panchayati
Raj Act, 1994 enacted by the State of Haryana is within the permitted
D field of State subjects. Under Article 243F person shall be disqualified for
being chosen as, and for being, a member of Panchayat if he is disqualified
by or under any law made by the Legislature of State and Article 243G
casts one of the responsibilities of Panchayats as preparation of plans and
implementation of schemes for economic development and social justice
E in relation to health and sanitation, family welfare and women and child
development and social welfare. Family planning is essentially a scheme
referable to health, family welfare, women and child development and
social welfare. Thus, the Constitution contemplates Panchayat as a potent
instrument of family welfare and social welfare schemes coming true for
the betterment of people's health especially women's health and family
F welfare coupled with social welfare. Under Section 21 of the Act, the
functions and duties entrusted to Gram Panchayats include 'Public Health
and Family Welfare', 'Women and Child Development' and 'Social
Welfare', Family planning falls therein. It is the leaders of Panchayat who
can themselves better enable the discharge of functions and duties and such
G constitutional goals. (968-F-H; 969-A-B[

6.3. Fundamental rights have to be read along with the Chapter on
Directive Principles of State Policy and the Fundamental Duties enshrined
in Article SIA and not in isolation. Articles 38, 46, 47 and others deal with
economic development and social welfare, public health as among its
H primary duties. These lofty ideals cannot be achieved without controlling
JAVED v. STATE 953
the population inasmuch as our materialistic resources are limited and the A
claimants are many. The concept of sustainable development which
emerges as a fundamental duty from the several clauses of Article 51A
too dictates the expansion of population being kept within reasonable
bounds. The problem of population explosion is a national and global issue
and provide justification for priority in policy-oriented legislations B
wherever needed. Thus, the impugned legislation does not violate right to
life and liberty guaranteed under Article 21 in any of the meanings
howsoever expanded the meanings may be. (969-C E; 970-A)

Air India v. Nergesh Meerza and Ors., (1981) 4 SCC 335, referred to.
c
Census of India, 2001, Series I, India - Paper I of 2001, p.29; Paper
on Population Stabilization by Usha Tandon, Reader, Faculty of Law, Delhi
University - Delhi Law Review, Vol.XXIII 2001, pp.125-131; Population
Policy and the Law, Paper by B.K. Raina, 1992, edited by B.P. Singh Sehgal,
p.52; Population Challenge, Article by Arcot Easwaran, The Hindu, dated
8.7.2003, referred to. D
7.1. Under Article 25 of the Constitution the freedom of conscience
a11d free profession, practice and propagation of religion is s.ubject to
public order, morality and health. Therefore, the Article itself permits a
legislation in the interest of social welfare and reform which are obviously E
part and parcel of public order, national morality and the collective health
of the nation's people. (970-B-C, GI

7.2. It may be permissible for Muslims to enter into four marriages
with four women and for anyone whether a Muslim or belonging to any
other community or religion to procreate as many children as he likes but F
no religion in India dictates or mandates as an obligation to enter into
bigamy or polygamy or to have children more than one. What is permitted
or not prohibited by a religion does not become a religious practice or a
positive tenet·of a religion. A practice does not acquire the sanction of
religion simply because it is permitted. Assuming the practice of having G
more wives than one or procreating more children than one is a practice
followed by any community or group of people the same can be regulated
or prohibited by legislation in the interest of public order, morality and
health or by any law providing for social welfare and reform. Thus,
Sections 175(l)(q) and 177(1) casting disqualification on contesting for or
holding an elective office on having more than two children is not violative H
954 SUPREME COURT REPORTS [2003] SUPP. I S.C.R.

A of Article 25 of the Constitution. [975-B-C; 974-G r

The State of Bombay v. Narasu Appa Mali, AIR [1952[ Bombay 84;
Badruddin v. Aisha Begam, [19571ALJ300; Smt. R.A. Pathan v. Dil·ector of
Technical Education and Ors., (1981 ( 22 GLR 289 and Ram Prasad Seth v.
State of Uttar Pradesh and Ors., AIR (1961[ Allahabad 334, approved.
B
Dr. M. Ismail Faruqui and Ors. v. Union of India and Ors., 11994( 6
SCC 360; Sar/a Mudgal (Smt.), President, Kalyani and Ors. v. Union ofIndia
and Ors., (1995( 3 SCC 635; Mohd. Ahmed Khan v. Shah Bano Begum and
Ors., (1985( 2 SCC 556 and Mohd. Han if Quareshi and Ors. v. The State of
C Bihar, 11959[ SCR 629, referred to.

8. The disqualification is attracted no sooner a third child is born
and is living after two living children. Merely because the couple has
parted with one child by giving the child away in adoption, the
disqualification does not come to an end. While interpreting the scope of
D disqualification the evil sought to be cured and purpose sought to be
achieved by the enactment must be kept in view. (975-F-G[

9. If the legislature chooses to carve out an exception in favour of
females it is free to do so but merely because women are not excepted from
E the operation of the disqualification it does not render it unconstitutional.
(976-B(

IO. Hypothetical examples where triplets are born or twins are born
on second pregnancy are not normal cases and the validity of the law
cannot be tested by applying it to abnormal situations. Exceptions do not
F make the rule nor render the rule irrelevant. (976-CI

CIVIL ORIGINAL JURISDICTION : Writ Petition (C) No. 302 of
2001.

(Under Article 32 of the Constitution of India.)
G
WITH

C.A. Nos. 5355-5372, 5380, 5381, 5382, 5385, 5386, 5397-5450/2003,
W.P. (C) Nos. 269, 316, 315, 329, 362, 363, 258, 403, 395, 420, 438, 475,
507, 508, 495, 567, 560/2001, 559, 561, 538, 539, 57912001, 19, 30, 32, I,
H 49, 50, 79, 94, 130, 93, 121, 144, 169, 168, 128, 177, 112, 71, 91, 178, 184,
JAVED v. STA TE 955
183, 185, 6812002, 43012001, 213, 214. 162, 230, 225, 228, 254, 296, 280, A
281, 305. 317, 309/2002, C.A. No. 3629/2002, W.P. (C) No. 306/2002, C.A.
No. 4053/2002, W.P.(C) Nos. 341, 342, 395/2002, C.A. No. 4066/2002,
W.P.(C) Nos. 396, 406/2002. C.A. Nos. 4501, 4487/2002. W.P.(C) Nos. 402,
336, 424, 355, 381, 380, 430, 431, 421, 404/2002, C.A. Nos. 5080, 5081/
2002, W.P(C) Nos. 443, 457, 451/2002, C.A. No. 5270/2002, W.P(C) Nos. B
462, 491, 495/2002, C.A. Nos. 5902, 5903/2002 W.P.(C) No. 278/2002, C.A.
No. 7034/2002, W.P. (C) Nos. 612, 574, 607, 240, 655, 676, 677, 547, 645,
620, 682/2002, 8/2003, 669/2002, 18, 28, 40/2003, C .. \. i·fo. 2033/2003,
W.P. (C) Nos. 63, 121, 123/2003, C.A.No. 2395/2003 W.P.(C) Nos. 149,
193, 195, 204, 155, 161, 188, 245, 247, 248, 250, 257, 268, 270, 277 and 281
/2003. c
Soli J. Sorabjee, Attorney General, S.B. Sanyal, R.P. Bhatt, P.P. Rao,
Rishi Malhotra, Prem Malhotra, Altaf Hussain, Ahil Sharma, Anil Kamwal,
Vishal Malik, M.S. Dahiya, Sanjay Sarin, Ashok Mathur, Arun Aggarwal,
S.C. Birla, Ms. Kusum Chaudhary, B.R. Kapur, Mukesh Kumar, Sunit Kumar,
Anis Ahmed Khan, Bhava Dutt Sharma, B.S. Chahar, Mrs. Jyoti Chahar, D
Vinay Garg, Suresh C. Gupta, A. Guneshwar Sharma, Sanjay Pal, Ms.
Shashwati Sen, Kamal Mohan Gupta, Mrs. Rachna Joshi Issar, Ajay Siwach,
Jasbir S. Malik, S.K. Sabharwal. Dr. Ramesh, K.Haritash, Ms. Alka Rai,
Goodwill Indeevar, Hari Shankar K., Ranbir Yadav, Dr. Kailash Chand,
Sarvesh Bisaria, Ms. Nidhi, K.R. Nagaraja, Sanjav Garg, R.K. Talwar, Y.P. E
Dhingra, Pannalal Syngal, M.L. Bakshi, S.S. Nehra, R.C. Kohli, Monohar
Singh Bakshi, Ms. Dipali Chauhan, Debasis Misra, Mahabir Singh, Ajay Pal,
Rakesh Dahiya, Irshad Ahmad, A.P. Mohanty, Manoj Swarup, R.D. Rathore,
K.K. Gupta, Jagjit Singh Chhabra, Varinder Kr. Sharma, C.D. Singh, L.K.
Pandey, Mushtaq Ahmad, Tara Chandra Sharma, Ms. Neelam Sharma, Ajai
Bhalla, Ms. Abha R. Sharma, Mrs. Sunita R. Singh, R.C. Pandey, S.K. Bansal, F
Ms. Savitri Bansal, Harbans Lal Bajaj, Mrs. Lalita Kaushik (NP), Jagdish Kr.
Agarwal, Dr. K.R. Punia, Mrs. Santosh Singh, Mrs. Vandana Singh, Rakesh
Kumar Mudgal, J.S. Maharatta, Rao Ranjit, Somvir Singh Deswal, M.P.
Shorawala, Madhukar Agarwal, P.K. Jain, Ms. Sandhya Goswami, Ms. M.
Sharda, Raj Kumar Mehta, B.S. Mor, S.M. Hooda, Gjan Singh, R.C. Kaushik, G
Naresh Kumar, Rajiv Talwar, Ms. Naresh Bakshi, Pardeep Gupta, K.K. Mohan,
Shakeel Ahmed, Attar Singh, Vishwajit Singh, Ms. Praveena Gautam, R.P.
Goyal, S.K. Sinha, Shankar Divate, S.C. Patel, D. Mahesh Babu, Mrs. Rekha
Palli, C.L. Sahum Dr. Surat Singh, Ashok K. Mahajan, Rakesh Tyagi, Ms.
Aparna Bhardwaj, Baldev Atreya, Praveen Jain, P. Narasimhan, Bimal Roy
Jad, Ms. Sunita Pandit, Jaswant Rajpal, M.M. Kashyap, Ugra Shankar Prasad, H
956 SUPREME COURT REPORTS [2003] SUPP. I S.C.R.

A Rohit Minocha, S.N. Bhat, N.P ..S. Panwar, D.P. Chaturvedi, Rishiraj Barooah,
J.P. Dhanda, Ms. Rajrani Dhanda, Ms. Geetanjali Mohan. Vinay Kr. Garg,
Ms. Kavita Wadia, Adv. (NP), Krishnan Venugopal, Uday N. Tiwary, Prasad
Vijaya Kumar, Bairam Das, K.G. Bhagat, Vineet Bhagat, Ku.ma! Baid, Nipum
Sharma, R.D. Upadhyay, Manish Singhvi and Ashok K. Mahajan for the
B appearing parties.

The Judgment of the Court was delivered by

R.C. LAHOTI, J. Leave granted in all the Special Leave Petitions.

In this batch of writ petitions and appeals the core issue is the vires of
C the provisigns of Section I 75(l)(q) and 177(1) of the Haryana Panchayati
Raj Act, 1994 (Act No.11 of 1994) (hereinafter referred to as the Act, for
short). The relevant provisions are extracted and reproduced hereunder:-

175. (I) No person shall be a Sarpanch or a Panch of a Gram Panchayat
or a member of a Panchayat Samiti or Zila Parishad or continue as
D such who -

xxx xxx xxx

E (q) has more than two living children :
Provided that a person having more than two children on or upto
the expiry of one year of the commencement of this Act, shall not be
deemed to be disqualified;

"177(1) If any member of a Gram Panchayat, Panchayat Samiti or
F Zila Parishad -
(a) who is elected, as su~h, was subject to any of the disqualifications
mentioned in section 175 at time of his election;
(b) during the term for which he has been elected, incurs any of the
G disqualifications mentioned in section 175,
shall be disqualified from continuing to be a member and his office
shall become vacant.

(2) In every case, the question whether a vacancy has arisen shall be
decided by the Director. The Director may give its decision either on
H
.JAVED v. STATE [R.C. LAHOTL .I.] 957
an application made to it by any person, or on its own motion. Until A
the Director decides that the vacancy, has arisen, the members shall
not be disqualified under sub-section (I) from continuing to be a
member. Any person aggrieved by the decision of the Director may,
within a period of fifteen days from the date of such decision, appeal
to the Government and the orders passed by Government in such B
appeal shall be final :

Provided that no order shall be passed under this sub-section by
the Director against any member without giving him a reasonable
opportunity of being heard."

Act No. I I of 1994 was enacted with various objectives based on past C
experience and in view of the shortcomings noticed in the implementation of
preceding laws and also to bring the legislation in conformity with Part IX
of the Constitution of India relating to 'The Panchayats' added by the Seventy-
third Amendment. One of the objectives set out in the Statement of Objects
and Reasons is to disqualify persons for election of Panchayats at each level, D
having more than 2 children after one year of the date of commencement of
this Act, to popularize Family Welfare/Family Planning Programme (Vide
Clause (m) of.Para 4 of SOR).

Placed in plain words the provision disqualifies a person having more
than two living children from holding the specified offices in Panchayats. E
The enforcement of disqualification is postponed for a period of one year
from the date of the commencement of the Act. A person having more than
two children upto the expiry of one year of the commencement of the Act is
not disqualified. This postponement for one year takes care of any conception
on or around the commencement of the Act, the normal period of gestation
being nine months. If a woman has conceived at the commencement of the F
Act then any one of such couples would not be disqualified. Though not
disqualified on the date of election if any person holding any of the said
offices incurs a disqualification by giving birth to a child one year after the
commencement of the Act he becomes subject to disqualification and is
disabled from continuing to hold the office. The disability is incurred by the G
birth of a child which results in increasing the number of living children,
j including the additional child born one year after the commencement of the
Act, to a figure more than two. If the factum is disputed the Director is
entrusted with the duty of holding an enquiry and declaring the office vacant.
The decision of the Director is subject to appeal to the Government. The
Director has to afford a reasonable opportunity of being heard to the holder H
958 SUPREME COURT REPORTS [2003] SUPP. I S.C.R.

A of office sought to be disqualified. These safeguards satisfy the requirements
of natural justice.

Several persons (who are the writ petitioners or appellants in this batch
of matters) have been disqualified or proceeded against for disqualifying
either from contesting the elections for, or from continuing in, the office of
B Panchas/Sarpanchas in view of their having incurred the disqualification as
provided by Section 175(1 )(q) or Section 177( 1) read with Section 175(1 )(q)
of the Act. The grounds for challenging the constitutional validity of the
abovesaid provision are very many, couched differently in different writ
petitions. We have heard all the learned counsel representing the different
C petitioners/appellants. As agreed to at the Bar, the grounds of challenge can
be categorized into five:- (i) that the provision is arbitrary and hence violative
of Article 14 of the Constitution; (ii) that the disqualification does not serve
the purpose sought to be achieved by the legislation; (iii) that the provision
is discriminatory; (iv) that the provision adversely affects the liberty of leading
personal life in all its freedom and having as many children as one chooses
D to have and hence is violative of Article 21 of the Constitution; and (v) that
the provision interferes with freedom of religion and hence violates Article
25 of the Constitution.

The State of Haryana has defended its legislation on all counts. We
have also heard the learned Standing Counsel for the State. On notice, Sh.
E Soli J. Sorabji, the learned Attorney General for India, has appeared to assist
the Court and he too has addressed the Court. We would deal with each of
the submissions made.

Submissions (i).(ii) & (iii)

F The first three submissions are based on Article 14 of the Constitution
and, therefore, are taken up together for consideration.

ls the classification arbitrary?

It is well-settled that Article 14 forbids class legislation; it does not
G forbid reasonable classification for the purpose of legislation. To satisfy the
constitutional test of permissibility, two conditions must be satisfied, namely
(i) that the classification is founded on an intelligible differentia which
distinguishes persons or things that are grouped together from others left out
of the group, and (ii) that such differentia has a rational relation to the object
H sought to be achieved by the Statute in question. The basis for classification
JAVED v. STATE [R.C. LAHOTI. .I.] 959
may rest on conditions which may be geographical or according to objects A
or occupation or the like. [See : Constitution Bench decision in Budhan
Chaudhry and Ors. v. The State of Bihar, [1955] I SCR 1045]. The
classification is well-defined and well-perceptible. Persons having more than
two living children are clearly distinguishable from persons having not more
than two living children. The two constitute two different classes and the B
classification is founded on an intelligible differentia clearly distinguishing
one from the other. One of the objects sought to be achieved by the legislation
is popularizing the family welfare/family planning programme. The
disqualification enacted by the provision seeks to achieve the objective by
creating a disincentive. The classification does not suffer from any arbitrariness.
The number of children, viz., two is based on legislative wisdom. It could C
have been more or less. The number is a matter of policy decision which is
not open to judicial scrutiny.

The legislation does not serve its object?

It was submitted that the number of children which one has, whether D
two or three or more, does not affect the capacity, competence and quality
of a person to serve on any office of a Panchayat and, therefore, the impugned
disqualification has no nexus with the purpose sought to be achieved by the
Act. There is no merit in the submission. We have already stated that one of
the objects of the enactment is to popularize Family Welfare/Family Planning
Programme. This is consistent with the National Population Policy. E

Under Article 243G of the Constitution the Legislature of a State has
been vested with the authority to make law endowing the Panchayats with
such powers and authority which may be necessary to enable the Gram
Panchayat to function as institutions of self-Government and such law may F
contain provisions for the devolution of powers and responsibilities upon
Panchayats, at the appropriate level, subject to such conditions as may be
specified therein. Clause (b) of Article 243G provides that Gram Panchayats
may be entrusted the powers to implement the schemes for economiF
development and social justice including those in relation to matters listed in
the Eleventh Schedule. Entries 24 and 25 of the Eleventh Schedule read: G
24. Family Welfare.

25. Women and child development.

In pursuance to the powers given to the State Legislature to enact laws the H
960 SUPREME COURT REPORTS [2003] SUPP. I S.C.R.

A Haryana Legislature enacted the Haryana Panchayati Raj Act, 1994 (Haryana
Act No. I I of 1994 ). Section 21 enumerates the functions and duties of Gram
Panchayat. Clause XIX (I) of Section 21 reads:

"XIX. Public Health and Family Welfare -

B lmpiementation of family welfare programme."

The family welfare would include family planning as well. To carry out the
purpose of the Act as well as the mandate of the Constitution the Legislature
has made a provision for making a person ineligible to either contest for the
post of Panch or Sarpanch having more than two living children. Such a
C provision would serve the purpose of the Act as mandated by the Constitution.
It cannot be said that such a provision would not serve the purpose of the
Act.

In our opinion, the impugned disqualification does have a nexus with
the purpose sought to be achieved by the Act. Hence it is valid
D
The provision is discriminatory?

It was submitted that though the State of Haryana has introduced such
a provision of disqualification by reference to elective offices in panchayats,
a similar provision is not found to have been enacted for disqualifying aspirants
E or holders of elective or public offices in other institutions of local self-
govemance and also not in State Legislatures and Parliament. So also all the
States, i.e., other than Haryana have not enacted similar laws, and therefore,
it appears that people aspiring to participate in Panchayati Raj governance in
the State of Haryana have been singled out and meted out hostile
F discrimination. The submission has been stated only to be rejected. Under the
constitutional scheme there is a well-defined distribution of legislative powers
contained in Part XI of the Constitution. The Parliament and every State
Legislature has power to make laws with respect to any of the matters which
fall within its field of legislation under Article 246 read with Seventh Schedule
of the Constitution. A legislation by one of the States cannot be held to be
G discriminatory or suffering from the vice of hostile discrimination as against
its citizens simply because the Parliament or the Legislatures of other States
1.
have not chosen to enact similar laws. Such a submission if accepted would
be violative of the autonomy given to the Centre and the States within their
respective fields under the constitutional scheme.

H
JAVED v. STATE [R.C. LAHOTL J.] 961
Similarly, legislations referable to different organs of local self- A
government, that is, Panchayats,,Municipalties and so on may be, rather are,
different Many a time they an: referable to different entries of Lists I, II and
III of the Seventh Schedule. All such laws need not necessarily be identical.
So is the case with the laws governing legislators and parliamentarians.

It is not permissible to compare a piece of legislation enacted by a State B
in exercise of its own legislative power with the provisions of another law,
though pari materia it may be, but enacted by Parliament or by another State
legislature within its own power to legislate. The sources of power are different
and so do differ those who exercise the power. The Constitution Bench in
The State of Madhya Pradesh v. G.C. Mandawar, [1955] 2 SCR 225, held C
that the power of the Court to declare a law void under Article 13 has to be
exercised with reference to the specific legislation which is impugned. Two
laws enacted by two different Governments and by two different legislatures
can be read neither in conjunction nor by comparison for the purpose of
finding out if they are discriminatory. Article 14 does not authorize the
striking down of a law of one State on the ground that in contrast with a law D
of another State on the same subject, its provisions are discriminatory. When
the sources of authority for the two statutes are different, Article 14 can have
no application. So is the view taken in The Bar Counci! of Uttar Pradesh v.
The State of U.P. and Anr., (1973] 1 SCC 261, State of Tamil Nadu and Ors.
v. Ananthi Ammal and Ors., (1995] 1 SCC 519 and Prabhakaran Nair and E
Ors. v. State of Tamil Nadu and Ors., (1987] 4 SCC 238.

Incidentally it may be noted that so far as the State of Haryana is
concerned, in the Haryana Municipal Act, 1973 (Act No. 24of1973) Section
13A has been inserted to make a provision for similar disqualification for a
person from being chosen or holding the office of a member of municipality. p
A uniform policy may be devised by the Centre or by a State. However,
there is no constitutional requirement that any such policy must be implemented
in one-go. Policies are capable of being implemented in a phased manner.
More so, when the policies have far-reaching implications and are dynamic
in nature, their implementation in a phased manner is welcome for it receives G
gradual willing acceptance and invites lesser resistance.

The implementation of policy decision in a phased manner is suggestive
neither of arbitrariness nor of discrimination. In Lalit Narayan Mishra Institute
of Economic Development and Social Change, Patna etc. v. State of Bihar
and Ors .. [1988] 2 sec 433, the policy of nationalizing educational institutes H
962 SUPREME COURT REPORTS [2003] SUPP. I S.C.R.

A was sought to be implemented in a phased manner. This Court held that all
the institutions cannot be taken over at a time and merely because the beginning
was made with one institute, it could not complain that it was singled out
and, therefore, Article 14 was violated. Observations of this Court in Pannalal
Bansilal Pitti and Ors. v. State of A.P. and Anr., [1996] 2 SCC 498, are
B apposite. In a pluralist society like India, people having faiths in different
religions, different beliefs and tenets, have peculiar problems of their own.
"A uniform law, though is highly desirable, enactment thereof in one go
perhaps may be counter-productive to unity and integrity of the nation. In a
democracy governed by rule of law, gradual progressive change and order
should be brought about. Making law or amendment to a law is a slow
C process and the legislature attempts to remedy where the need is felt most
acute. It would, therefore, be inexpedient and incorrect to think that all laws
have to be made uniformly applicable to all people in one go. The mischief
or defect which is most acute can be remedied by process of law at stages."

To make a beginning, the reforms may be introduced at the grass-root
D level so as to spiral up or may be introduced at the top so as to percolate
down. Panchayats are grass-root level institutions of local self-governance.
They have a wider base. There is nothing wrong in the State of Haryana
having chosen to subscribe to the national movement of population control
by enacting a legislation which would go a long way in ameliorating health,
E social and economic conditions of rural population, and thereby contribute to
the development of the nation which in its turn would benefit the entire
citizenry. We may quote from the National Population Policy 2000
(Government of India Publication, page 35):-

"Demonstration of support by elected leaders, opinion makers, and
F religious leaders with close involvement in the reproductive and child
health programme greatly influences the behaviour and response
patterns of individuals and communities. This serves to enthuse
communities to be attentive towards the quality and coverage of
maternal and child health services, including referral care." .......... "The
involvement and enthusiastic participation of elected leaders will
G ensure dedicated involvement of administrators at district and sub-
district levels. Demonstration of strong support to the small family
norm, as well as personal example, by political, community, business,
professional, and religious leaders, media and film stars, sports
personalities and opinion makers, will enhance its acceptance
H throughout sociY,ty."
JAVED v. STATE [R.C. LAHOTI, J.] 963
No fault can be found with the State of Haryana hav\ng enacted the A
legislation. It is for others to emulate.

We are clearly of the opinion that the impugned provision is neither
arbitrary nor unreasonable nor discriminatory. The disqualification contained
in Section 175(1 )(q) of Haryana Act No. I I of 1994 seeks to achieye a laudable
purpose - ·socio-economic welfare and health care of the masses and is B
consistent with the National Population Policy. It is not violative of Article
14 of the Constitution.

Submission (iv) & (v) : the provision if it violates Article 21 or 25?

Before testing the validity of the impugned legislation from the viewpoint C
of Articles 21 and 25, in the light of the submissions made, we take up first
the more basic issue - Whether it is at all permissible to test the validity of
a law which enacts a disqualification operating in the field of election, on the
touchstone of violation of fundamental rights?

Right to contest an election is neither a fundamental right nor a common D
law right. It is a right conferred by a Statute. At the most, in view of Part IX
having been added in the Constitution, a right to contest election for an office
in Panchayat may be said to be a constitutional right a right originating in
Constitution and given shape by statute. But even so it cannot be equated
with a fundamental right. There is nothing wrong ·in the same Statute which E
confers the right to contest an election also to provide for the necessary
qualifications without which a person cannot offer his candidature for an
elective office and also to provide for disqualifications which would disable
a person from contesting for, or holding, an elective statutory office.

Reiterating the law laid down in N.P. Ponnuswami v. Returning Officer, F
Namakkal Constituency, [ 1952] SCR 218, and Jagan Nath v. Jaswant Singh
and Ors., [1954] SCR 892, this Court held in Jyoti Basu and Ors. v. Debi
Ghosal and Ors., [1982] 1 SCC 691, - "A right to elect, fundamental though
it is to democracy, is, anomalously enough, neither a fundamental right nor
a common law right. It is pure and simple, a statutory right. So is the right G
to be elected. So is the right to dispute an election. Outside of statute, there
is no right to elect, no right to be elected and no right to dispute an election.
Statutory creations they are, and therefore, subject to statutory limitation."

In Jum1111a Prasad Mukhariya and Ors. v. lachhi Ram and Ors., [1955]
I SCR 608, a candidate at the election made a systematic appeal to voters of H
964 SUPREME COURT REPORTS (2003] SUPP. I S.C.R.

A a particular caste to vote for him on the basis of his caste through publishing
and circulating leaflets. Sections 123(5) and 124(5) of the Representation of
the People Act, 1951, were challenged as ultra vires of Article 19(1 )(a) of the
Constitution, submitting that the provisions of Representation of the People
Act interfered with a citizen's fundamental right to freedom of speech.
B Repelling the contention, the Constitution Bench held that these laws do not
stop a man from speaking. They merely provide conditions which must be
observed if he wants to enter Parliament. The right to stand as a candidate
and contest an election is not a common law right; it is a special right created
by statute and can only be exercised on the conditions laid down by the
statute. The Fundamental Rights Chapter has no bearing on a right like this
C created by statute. The appellants have no fundamental right to be elected
and if they want to be elected they must observe the rules. If they prefer to
exercise their right of free speech outside these rules, the impugned sections
do not stop them. In Sakhawat Ali v. The State ofOrissa, [1955] I SCR 1004,
the appellant's nomination paper for election as a Councillor of the
Municipality was rejected on the ground that he was employed as a legal
D practitioner against the Municipality which was a disqualification under the
relevant Municipality Act. It was contended that the disqualification prescribed
violated the appellant's fundamental rights guaranteed under Articles 14 and
19( I)(g) of the Constitution. The Constitution Bench held that the impugned
provision has a public purpose behind it, i.e., the purity of public life which
E would be thwarted where there was a conflict between interest and duty. The
Constitution Bench further held that the right of the appellant to practise the
profession of law guaranteed by Article 19( 1)(g) cannot be said to have been
violated because in laying down the disqualification the Municipal Act does
not prevent him from practising his profession of law; it only lays down that
if he wants to stand as a candidate for election he shall not either be employed
F as a paid legal practitioner on behalf of the Municipality or act as a legal
practitioner against the Municipality. There is no fundamental right in any
person to stand as a candidate for election to the Municipality. The only
fundamental right which is guaranteed is that of practising any profession or
carrying on any occupation, trade or business. The impugned disqualification
G does not violate the latter right. Primarily no fundamental right is violated
and even assuming that it be taken as a restriction on his right to practise his
profession of law, such restriction would be liable to be upheld being
reasonable and imposed in the interests of general public for the preservation
of purity in public life.

H In our view, disqualification on the right to contest an election by
JAVED v. STATE [R.C. LAHOTI. J.] 965
having more than two living children does not contravene any fundamental A
right nor does it cross the limits of reasonability. Rather it is a disqualification
conceptually devised in national interest.

With this general statement of law which has application to Articles 21
and 25 both, we now proceed to test the sustainability of attack on
constitutional validity of impugned legislation separately by reference to B
Articles 21 and 25.

The disqualification if violates Article 21 ?

Placing strong reliance on Mrs. Maneka Gandhi v. Union of India and
Anr., [1978) 1 SCC 248, and Mis. Kasturu Lal Lakshmi Reddy and Ors. v. C
State of Jammu and Kashmir and Anr., [1980) 4 SCC 1, it was forcefully
urged that the fundamental right to life and personal liberty emanating from
.. Article 21 of the Constitution should be allowed to stretch its span to its
, ' optimum so as to include in the compendious term of the Article all the
varieties of rights which go to make up the personal liberty of man including D
the right to enjoy all the materialistic pleasures and to procreate as many
children as one pleases.

At the very outset we are constrained to observe that the law laid down
by this Court in the decisions relied on is either being misread or read divorced
of the context. The test of reasonableness is not a wholly subjective test and E
its contours are fairly indicated by the Constitution. The requirement of
reasonableness runs like a golden thread through the entire fabric of
fundamental rights. The lofty ideals of social and economic justice, the
advancement of the nation as a whole and the philosophy of distribu'ive
justice - economic, social and political - cannot be given a go-by in the name
of undue stress on fundamental rights and individual liberty. Reasonableness F
and rationality, legally as well as philosophically, provide colour to the
meaning of fundamental rights and these principles are deducible from those
very decisions which have been relied on by the learned counsel for the
petitioners.
G
It is necessary to have a look at the population scenario, of the wvrld
and of our own country.

India has the (dis)credit of being second only to China at the top in the
list of the IO most-populous countries of the world. As on 1.2.2000 the
population of China was I,277.6 million while the population of India as on H
966 SUPREME COURT REPORTS (2003] SUPP. I S.C.R.

A 1.3.2001 was 1,027.0 million (Census of India, 2001, Series!, India - Paper
I of 200 I, page 29).

The torrential increase in the population of the country is one of the
major hindrances in the pace of India's socio-economic progress. Everyday,
about 50,000 persons are added to the already large base of its population.
B The Karunakaran Population Committee (1992-93) had proposed certain
disincentives for those who do not follow the norms of the Development
Model adopted by the National Public Policy so as to bring down the fertility
rate. It is a matter of regret that though the Constitution of India is committed
to social and economic justice for all, yet India has entered the new millennium
C with the largest number of illiterates in the world and the largest number of
people below the poverty line. The laudable goals spelt out in the Directive
Principles of State Policy in the Constitution of India can best be achieved
if the population explosion is checked effectively. Therefore, the population
control assumes a central importance for providing social and economic justice
to the people of India (Usha Tandon, Reader, Faculty of Law, Delhi University,
D - Research Paper on Population Stabilization, Delhi Law Review, Vol. XXIII
2001, pp.125-13I).

In the words of Berland Russell, "Population explosion is more
dangerous than Hydrogen Bomb." This explosive population over-growth is
not confined to a particular country but it is a global phenomenon. India
E being the largest secular democracy has the population problem going side
by side and directly impacting on its per capita income, and resulting in
shortfall of food-grains in spite of the green revolution, and has hampered
improvement on the educational front and has caused swelling of
unemployment numbers, creating a new class of pavement and slum-dwellers
p and leading to congestion in urban areas due to the migration of rural poor.
(Paper by B.K. Raina in Population Policy and the Law, I 992, edited by B.P.
Singh Sehgal, page 52).

In the beginning of this century, the world population crossed six billions,
of which India alone accounts for one billion (17 per cent) in a land area of
G 2.5 per cent of the world area. The global annual increase of population is
80 millions. Out of this, India's growth share is over 18 millions (23 per
cent), equivalent to the total population of Australia, which has two and a
half times the land space of India. In other words, India is growing at the
alanning rate of one Australia every year and will be the most densely populous
H country in the world, outbeating China, which ranks first, with a land area
JAVED v. STATE [R.C. LAHOTI. J.] 967
thrice this country's. China can withstand the growth for a few years more, A
but not India, with a constricted land space. Here, the per capita crop land
is the lowest in the world, which is also shrinking fast. If this falls below the
minimum sustainable level, people can no longer feed themselves and shall
become dependent on imported food, provided there are nations with
exportable surpluses. Perhaps, this may lead to famine and abnormal conditions B
in some parts of the country (Source - Population Challenge, Arcot Easwaran,
The Hindu, dated 8.7.2003). It is emphasized that as the population grows
rapidly there is a corresponding decrease in per capita water and food._ Women
in many places trek long distance~ in search of water which distances would
increase every next year on account of excessive ground water withdrawals
catering to the need of the increasing population, resulting in lowering the C
levels of water tables.

Arcot Easwaran has quoted the China example. China, the most populous
country in the world, has been able to control its growth rate by adopting the
'carrot and stick' rule. Attractive incentives in the field of education and
employment were provided to the couples following the. 'one-child norm'. At D
·the same time drastic disincentives were cast on the couples breaching 'one-
child norm' which even included penal action. India being a democratic
country has so far not chosen to go beyond casting minimal disincentives and
has not embarked upon penalizing procreation of children beyond a particular
limit. However, it has to be remembered that complacence in controlling E
population in the name of democracy is too heavy a price to pay, allowing
the nation to drift towards disaster.

The growing population of India had alarmed the Indian leadership
even before India achieved independence. In 1940 the Sub-Committee O'l
Population, appointed by the National Planning Committee set up by the p
President of the Indian National Congress (Pandit Jawaharlal Nehru),
considered 'family planning and a limitation of children' essential for the
interests of social economy, family happiness and national planning. The
committee recommended the establishment of birth control clinics and other
necessary measures such as raising the age at marriage and a eugenic
sterilization programme. A committee on population set up by the National G
Development Council in 1991, in the wake of the census result, also proposed
the formulation of a national policy (Source - Seminar, March 2002, page 25)

Every successive Five Year Plan has given prominence to a population
policy. In the first draft of the First Five Year Plan (1951-56) the Planning H
968 SUPREME COURT REPORTS [2003] SUPP. I S.C.R.

A Commission recognized that population policy was essential to planning and
that family planning was a step forward for improvement in health, particularly
that of mothers and children. The Second Five Year Plan ( 1956-61) emphasized
the method of sterilization. A Central Family Planning Board was also
constituted in 1956 for the purpose. The Fourth Five Year Plan (1969-74)
B placed the family planning programme, "as one amongst items of the highest
national priority". The Seventh Five Year Plan (1985-86 to 1990-91) has
underlined "the importance of population control for the success of the plan
programme ...." But, despite all such exhortations, "the fact remains that the
rate of population growth has not moved one bit from the level of 33 per
thousand reached in 1979. And in many cases, even the reduced targets set
C since then have not been realised. (Population Policy and the Law, ibid,
pages 44-46).

The above facts and excerpts highlight the problem of population
explosion as a national and global issue and provide justification for priority
in policy-oriented legislations wherever needed.
D
None of the petitioners has disputed the legislative competence of the
State of Haryana to enact the legislation. Incidentally, it may be stated that
Seventh Schedule, List II - State List, Entry 5 sper.ks of 'Local government,
that is to say, the constitution and powers of municipal corporations,
improvement trusts, district boards, mining settlement authorities and other
E local authorities for the purpose of local self-government or village
administration'. Entry 6 speaks of 'Public health and sanitation' inter alia. In
List III - Concurrent List, Entry 20A was added which reads 'Population
control and family planning'. The legislation is within the permitted field of
State subjects. Article 243C makes provision for the Legislature of a State
p enacting laws with respect to Constitution of Panchayats. Article 243 F in Part
IX of the Constitution itself provides that a person shall be disqualified for
being chosen as, and for being, a member of Panchayat if he is so disqualified
by or under any law made by the Legislature of the State. Article 243G casts
one of the responsibilities of Panchayats as preparation of plans and
implementation of schemes for economic development and social justice.
G Some of the schemes that can be entrusted to Panchayats, as spelt out by
Article 243G read with Eleventh Schedule is - Scheme for economic
development and social justice in relation to health and sanitation, family
welfare and women and child development and social welfare. Family planning
is essentially a scheme referable to health, family welfare, women and child
H development and social welfare. Nothing more needs to be said to demonstrate
.Ii\ VED v. STATE [R.C. Li\HOTI, .I.] 969
that the Constitution contemplates Panchayat as a potent instrument of family A
welfare and social welfare schemes coming true for the betterment of people's
health especially women's health and family welfare coupled with social
·' welfare. Under Section 21 of the Act, the functions and duties entrusted to
Gram Panchayats include 'Public Health and Family Welfare', 'Women and
Child Development' and 'Social Welfare'. Family planning falls therein. Who B
can better enable the discharge of functions and duties and such constitutional
goals being achieved than the leaders of Panchayats themselves taking a lead
and setting an example.

Fundamental rights are not to be read in isolation. They have to be read

' along with the Chapter on Directive Principles of State Policy and the
Fundamental Duties enshrined in Article SIA. Under Article 38 the State
shall strive to promote the welfare of the people and developing a social
C

order empowered at distributive justice - social, economic and political. Under
Article 46 the State shall promote with special care the educational and
economic interests of the weaker sections of the people and in particular the
constitutionally down-trodden. Under Article 47 the State shall regard the D
raising of the level of nutrition and the standard of living of its people and
the improvement of public health as among its primary duties. None of these
lofty ideals can be achieved without controlling the population inasmuch as
our materialistic resources are limited and the claimants are many. The concept
of sustainable development which emerges as a fundamental duty from the E
several clauses of Article 51 A too dictates the expansion of population being
kept within reasonable bounds.

The menace of growing population was judicially noticed and
constitutional validity of legislative means to check the population was upheld
in Air India v. Nergesh Meerza and Ors., [1981] 4 SCC 335. The Court F
found no fault with the rule which would terminate the services of Air
Hostesses on the third pregnancy with two existing children, and held the
rule both salutary and reasonable for two reasons - "In the first place, the
provision preventing a third pregnancy with two existing children would be
in the larger interest of the health of the Air Hostess concerned as also for
the good upbringing of the children. Secondly, ......... when the entire world G
is faced with the problem of population explosion it will not only be desirable
but absolutely essential for every country to see that the family planning
programme is not only whipped up but maintained at sufficient levels so as
to meet the danger of over-population which, if not controlled, may lead to
serious social and economic problems throughout the world." H
970 SUPREME COURT REPORTS (2003) SUPP. I S.C.R.

A To say the least it is futile to assume or urge that the impugned legislation
violates right to life and liberty guaranteed under Article 21 in any of the
meanings howsoever expanded the meanings may be.
•
The provision if it violates Article 25 ?

B It was then submitted that the personal law of Muslims permits
performance of marriages with four women, obviously for the purpose of
procreating children and any restriction thereon would be violative of right
to freedom of religion enshrined in Article 25 of the Constitution. The relevant
part of Article 25 reads as under:-
(
C "25. Freedom of conscience and free profession, practice and
propagation of religion. - (I) Subject to public order, morality
and health and to the other provisions of this Part, all persons are
equally entitled to freedom of conscience and the right freely to
profess, practise and propagate religion.

D (2) Nothing in this article shall affect the operation of any
existing law or prevent the State from making any law -
(a) regulating or restricting any economic, financial, political
or other secular activity which may be associated with
religious practice;
E
(b) providing for social welfare and reform or the throwing
open of Hindu religious institutions of a public character to
all classes and sections of Hindus."

A bare reading of this Article deprives the submission of all its force,
p vigour and charm. The freedom is subject to public order, morality and
health. So the Article itself permits a legislation in the interest of social
welfare and reform which are obviously part and parcel of public order,
national morality and the collective health of the nation's people.

The Muslim Law permits marrying four women. The personal law
G nowhere mandates or dictates it as a duty to perform four marriages. No
religious scripture or authority has been brought to our notice which provides
that marrying less than four women or abstaining from procreating a child
from each and every wife in case of permitted bigamy or polygamy would
be irreligious or offensive to the dictates of the religion. In our view, the
question of the impugned provision of Haryana Act being violative of Article
H
JAVED v. STATE [RC. LAHOTI • .LJ 971

25 does not arise. We may have a reference to a few decided cases. A
t The meaning of religion - the term as employed in Article 25 and the
nature of protection conferred by Article 25 stands settled by the
pronouncement of the Constitution Bench decision in Dr. M. Ismail Faruqui
and Ors. v. Union of India and Ors., [ 1994] 6 SCC 360. The protection under
Articles 25 and 26 of the Constitution is with respect to religious practice B
which forms an essential and integral part of the religion. A practice may be
a religious practice but not an essential and integral part of practice of that
religion. The latter is not protected by Article 25.

In Sar/a Mudgal (Smt.), President, Kalyani and Ors. v. Union of India C
and Ors., [1995] 3 SCC 635, this Court has judicially noticed it being
acclaimed in the United States of America that the practice of polygamy is
injurious to 'public morals', even though some religions may make it
obligatory or desirable for its followers. The Court held that polygamy can
be superseded by the State just as it can prohibit human sacrifice or the
practice of Sati in the interest of public order. The Personal Law operates D.
under the authority of the legislation and not under the religion and, therefore,
the Personal Law can always be superseded or supplemented by legislation.

In Mohd. Ahmed Khan v. Shah Bano Begum and Ors., [1985] 2 SCC
556, the Constitution Bench was confronted with a canvassed conflict between
the provisions of Section 125 of Cr.P.C. and Muslim Personal Law. The E
question was: when the Personal Law makes a provision for maintenance to
a divorced wife, the provision for maintenance under Section 125 of Cr.P.C.
would run in conflict with the Personal Law. The Constitution Bench laid
down two principles; firstly, the two provisions operate in different fields
and, therefore, there is no conflict and; secondly, even if there is a conflict F
it should be set at rest by holding that the statutory law will prevail over the
Personal Law of the parties, in cases where they are in conflict.

In Mohd Hanif Quareshi and Ors. v. The State of Bihar, [1959] SCR
629, the State Legislation placing a total ban on cow slaughter was under
challenge. One of the submissions made was that such a ban offended Article G
25 of the Constitution because such ban came in the way of the sacrifice of
a cow on a particular day where it was considered to be religious by Muslims.
Having made a review of various religious books, the Court concluded that
it did not appear to be obligatory that a person must sacrifice a cow. It was
optional for a Muslim to do so. The fact of an option seems to run counter
H
972 SUPREME COURT REPORTS [2003) SUPP. I S.C.R.

A to the notion of an obligatory duty. Many Muslims do not sacrifice a cow on
the Id day. As it was not proved that the sacrifice of a cow on a particular
day was an obligatory overt act for a Mussalman for the performance of his
religious beliefs and ideas, it could not be held that a total ban on the slaughter
of cows ran counter to Article 25 of the Constitution.

B In The State of Bombay v. Narasu Appa Mali, AIR (1952) Bombay 84,
the constitutional validity of the Bombay Prevention of Hindu Bigamous
Marriages Act (XXV (25) of 1946) was challenged on the ground of violation
of Articles 14, 15 and 25 of the Constitution. A Division Bench, cor.sisting
of Chief Justice Chagla and Justice Gajendragadkar (as His Lordship then
C was), held -

"A sharp distinction must be drawn between religious faith and belief
and religious practices. What the State protects is religious faith and
belief. If religious practices run counter to public order, morality or
health or a policy of social welfare upon which the State has embarked,
D then the religious practices must give way before the good of the
people of the State as a whole."

Their Lordships quoted from American decisions that the laws are made
for the government of actions, and while they cannot interfere with mere
religious belief and opinions, they may with practices. Their Lordships found
E it difficult to accept the proposition that polygamy is an integral part of
Hindu religion though Hindu religions recognizes the necessity of a son for
religious efficacy and spiritual salvation. However, proceeding on an
assumption that polygamy is recognized institution according to Hindu
religious practice, their Lordships stated in no uncertain terms -

F "The right of the State to legislate on questions relating to marriage
cannot be disputed. Marriage is undoubtedly a social institution an
institution in which the State is vitally interested. Although there may
not be universal recognition of the fact, still a very large volume of
opinion in the world today admits that monogamy is a very desirable
and praiseworthy institution. If, therefore, the State of Bombay compels
G Hindus to become monogamists, it is a measure of social reform, and
if it is a measure of social reform then the State is empowered to
legislate with regard to social reform under Article 25(2)(b)
notwithstanding the fact that it may interfere with the right of a
citizen freely to profess, practise and propagate religion."
H
JAVED v. STATE IR.C. LAHOTI. .I.] 973
What constitutes social reform? Is it for the legislature to decide the A
same? Their Lordships held in Narasu Appa Mali's case (supra) that the will
expressed by the legislature, constituted by the chosen representatives of the
people in a democracy who are supposed to be responsible for the welfare of
the State, is the will of the people and if they lay down the policy which a
State should pursue such as when the legislature in its wisdom has come to B
the conclusion that monogamy tends to the welfare of the State, then it is not
for the Courts of Law to sit in judgment upon that decision. Such legislation
does not contravene Article 25( I) of the Constitution.

We find ourselves in entire agreement, with the view so taken by the
learned Judges whose eminence as jurists concerned with social welfare and C
social justice is recognized without any demur. Divorce unknown to ancient
Hindu Law, rather considered abominable to Hindu religious belief, has been
statutorily provided for Hindus and the Hindu marriage which was considered
indissoluble is now capable of being dissolved or annulled by a decree of
divorce or annulment. The reasoning adopted by the High Court of Bombay,
in our opinion, applies fully to repel the contention of the petitioners even D
when we are examining the case from the point of view of Muslim Personal
Law.

·. ~
The Division Bench of the Bombay High Court in Narasu Appa Mali
(supra) also had an occasion to examine the validity of the legislation when
it was sought to be implemented not in one go but gradually. Their Lordships E
held - "Article 14 does not lay down that any legislation that the State may
embark upon must necessarily be of an all-embracing character. The State
may rightly decide to bring about social reform by stages and the stages may
be territorial or they may be community-wise."

Rule 21 of the Central Civil Services (Conduct) Rules, 1964 restrains
F
any government servant having a living spouse from entering into or
contracting a marriage with any person. A similar provision is to be found
in several S€rvice rules framed by the States governing the conduct of their
civil servants. No decided case of this court has been brought to our notice
wherein the constitutional validity of such provisions may have been put in G
issue on the ground of violating the freedom of religion under Article 25 or
the freedom of personal life and liberty under Article 21. Such a challenge
was never laid before this Court apparently because of its futility. However,
a few decisions by the High Courts may be noticed.

In Badruddin v. Aisha Begam. (1957) ALJ 300, the Allahabad High H
974 SUPREME COURT REPORTS (2003] SUPP. I S.C.R.

A Court ruled that though the personal law of muslims permitted having as
many as four wives but it could not be said that having more than one wife
is a part of religion. Neither is it made obligatory by religion nor is it a matter
of freedom of conscience. Any law in favour of monogamy does not interfere
with the right to profess, practise and propagate religion and does not involve
any violation of Article 25 of the Constitution.
B
In Smt. R.A. Pathan v. Director of Technical Education and Ors., (I 981)
22 GLR 289, having analysed indepth the tenets of Muslim personal law and
its base in religion, a Division Bench of Gujarat High Court held that a
religious practice ordinarily connotes a mandate which a faithful must carry
C out. What is permissive under the scripture cannot be equated with a mandate
which may amount to a religious practice. Therefore, there is nothing in the
extract of the Quaranic text (cited before the Court) that contracting plural
marriages is a matter of religious practice amongst Muslims. A bigamous
marriage amongst Muslims is neither a religious practice nor a religious
belief and certainly not a religious injunction or mandate. The question of
D attracting Articles 15(1 ), 25( I) or 26(b) to protect a bigamous marriage and
in the name of religion does not arise.

In Ram Prasad Seth v. State of Uttar Pradesh and Ors., (1957) L.L.J.
(Vol.II) 172 =AIR 1961 Allahabad 334) a learned single Judge held that the
act of performing a second marriage during the lifetime of one's wife cannot
E be regarded as an integral part of Hindu religion nor could it be regarded as
practising or professing or propagating Hindu religion. Even if bigamy be
regarded as an integral part of Hindu religion, Rule 27 of the Government
Servants' Conduct Rules requiring permission of the Government before
contracting such marriage must be held to come under the protection of
F Article 25(2)(b) of the Constitution.

The law has been correctly stated by the High Courts of Allahabad,
Bombay and Gujarat, in the cases cited hereinabove and we record our
respectful approval thereof. The principles stated therein are applicable to all
religions practised by whichever religious groups and sects in India.
G
In our view, a statutory provision casting disqualification on contesting
for, or holding, an elective office is not violative of Article 25 of the
Constitution.

Looked at from any angle, the challenge to the constitutional validity
H of Section 175 (l)(q) and Section 177(1) must fail. The right to contest an
JAVED v. STATE [R.C. LAHOT!. .I.] 975
election for any office in Panchayat is neither fundamental nor a common A
law right. It is the creature of a statute and is obviously subject to qualifications
' .t and disqualifications enacted by legislation. It may be permissible for Muslims
to enter into four marriages with four women and for anyone whether a
Muslim or belonging to any other community or religion to procreate as
many children as he likes but no religion in India dictates or mandates as an B
obligation to enter into bigamy or polygamy or to have children more than
one. What is permitted or not prohibited by a religion does not become a
religious practise or a positive tenet of a religion. A practice does not acquire
\ ' the sanction of religion simply because it is permitted. Assuming the practice
of having more wives than one or procreating more children than one is a
practice followed by any community or group of people the same can be C
regulated or prohibited by legislation in the interest of public order, morality
and health or by any law providing for social welfare and reform which the
impugned legislation clearly does.

If anyone chooses to have more living children than two, he is free to
do so under the law as it stands now but then he should pay a little price and D
that is of depriving himself from holding an office in Panchayat in the State
ofHaryana. There is nothing illegal about it and certainly no unconstitutionality
attaches to it.

Some incidental questions
E
It was submitted that the enactment has created serious problems in the
rural population as couples desirous of contesting an election but having
living children more than two, are feeling compelled to give them in adoption.
Subject to what has already been stated hereinabove, we may add that
disqualification is attracted no sooner a third child is born and is living after F
two living children. Merely because the couple has parted with one child by
giving the child away in adoption, the disqualification doe~ not come to an
end. While interpreting the scope of disqualification we shall have to keep in
view the evil sought to be cured and purpose sought to be achieved by the
enactment. If the person sought to be disqualified is responsible for or has
given birth to children more than two who are living then merely because one G
or more of them are given in adoption the disqualification is not wiped out.

It was also submitted that the impugned disqualification would hit the
women worst, inasmuch as in the Indian society they have no independence
and they almost helplessly bear a third child if their husbands want them to
do so. This contention need not detain us any longer. A male who compels H
976 SUPREME COURT REPORTS [2003] SUPP. I S.C.R.

A his wife to bear a third child would disqualify not only his wife but himself
as well. We do not think that with the awareness which is arising in Indian
women folk, they are so helpless as to be compelled to bear a third child even
though they do not wish to do so. At the end, suffice it to say that if the
legislature chooses to carve out an exception in favour of females it is free
B to do so but merely because women are not excepted from the operation of
the disqualification it does not render it unconstitutional.

Hypothetical examples were tried to be floated across the bar by
submitting that there may be cases where triplets are born or twins are born
on the second pregnancy and consequently both of the parents would incur
C disqualification for reasons beyond their control or just by freak of divinity.
Such are not normal cases and the validity of the law cannot be tested by
applying it to abnormal situations. Exceptions do not make the rule nor
render the rule irrelevant. One swallow does not make a summer; a single
instance or indicator of something is not necessarily significant.

D Conclusion
The challenge to the constitutional validity of Sections 175(! )( q) and
177( I) fails on all the counts. Both the provisions are held, intra vires the.
Constitution. The provisions are salutary and in public interest. All the petitions
which challenge the constitutional validity of the abovesaid provisions are
E held liable to be dismissed.

Certain consequential orders would be needed. The matters in this batch
of hundreds of petitions can broadly be divided into a few categories. There
are writ petitions under Article 32 of the Constitution directly filed in this
Court wherein the only question arising for decision is the constitutional
F validity of the impugned provisions of the Haryana Act. There were many a
writ petitions filed in the High Court of Punjab & Haryana under Articles
226/227 of the Constitution which have been dismissed and appeals by special
leave have been filed in this Court against the decisions of the High Court.
The writ petitions, whether in this Court or in the High Court, were filed at
G different stages of the proceedings. In some of the matters the High Court
had refused to stay by interim order the disqualification or the proceedings
relating to disqualification pending before the Director under Section 177(2)
of the Act. With the decision in these writ petitions and the appeals arising
out of SLPs the proceedings shall stand revived at the stage at which they
were, excepting in those matters where they stand already concluded. The
H proceedings under Section 177(2) of the Act before the Director or the hearing
.JAVED v. STATE [R.C. LAHOTI, J.] 977

in the appeals as the case may be shall now be concluded. In such of the A
cases where the persons proceeded against have not filed their replies or have
not appealed against the decision of the Director in view of the interim order
of this Court or the High Court having been secured by them they would be
entitled to file reply or appeal, as the case may be, within 15 days from the
date of this judgment if the time had not already expired before their initiating B
proceedings in the High Court or this Court. Such of the cases where defence
in the proceedings under Section 177(2) of the Act was raised on the ground
that the disqualification was not attracted on account of a child or more
having been given in adoption, need not be re-opened as we have held that
such a defence is not available.

Subject to the abovesaid directions all the writ petitions and civil appeals
c
arising out of SLPs are dismissed.

N.J. Petitions/Api;eals dismissed.

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