Supreme Court of India
SAURABH CHAUDRI AND ORS.versusUNION OF INDIA AND ORS.
- Citation
- 2003 INSC 597
- Decided
- 4 November 2003
- Disposal
- Disposed off
- Bench
- V N KHARE
Holding
Reservation by institutional preference is constitutionally valid if limited to 50% of seats, while reservation based on domicile is impermissible, and super‑speciality courses must admit candidates solely on merit.
Summary
The petitioners, originally residents of Delhi who obtained their MBBS degrees outside Delhi under the 15% all‑India quota, challenged Delhi University’s notification that barred them from postgraduate medical courses, arguing that reservations based on domicile or institutional preference violated Articles 14 and 15 of the Constitution. The Court examined whether "place of birth" is synonymous with "domicile", the applicability of the U.S. strict‑scrutiny test, and the constitutional validity of reservation by institutional preference. It held that "place of birth" and "domicile" are distinct concepts, that the strict‑scrutiny test is not applicable in Indian law, and that reservation by institutional preference is a reasonable classification if confined to 50% of seats. The Court reaffirmed the scheme laid down in Dr. Pradeep Jain’s case, directing that super‑speciality courses admit students purely on merit and that a common All‑India entrance test be used for admissions. Consequently, the writ petitions were dismissed and the directions were issued as interim measures.
Issues considered
- Whether reservation based on domicile or place of birth violates Articles 14 and 15 of the Constitution.
- Whether the U.S. strict‑scrutiny or intermediate‑scrutiny test can be applied to Indian reservation statutes.
- Whether reservation by institutional preference constitutes a permissible classification under Article 14.
- Whether reservation can be extended to super‑speciality postgraduate medical courses.
- Whether the percentage of seats reserved by institutional preference should be limited to 50%.
Legislation cited
- Constitution of Indias. Article 14, s. Article 15(1), s. Article 15(4), s. Article 16(2), s. Article 41, s. Article 47
Subjects
reservationdomicileinstitutional preferencemedical educationArticle 14Article 15equalitymeritsuper‑specialityhigher educationconstitutional law
Judgment
A SAURABH CHAUDRI AND ORS.
v.
UNION OF INDIA AND ORS.
NOVEMBER 4, 2003
B
[V.N. KHARE, CJ., R.C. LAHOTI, B.N. AGRAWAL, S.B. SINHA AND
DR. AR. LAKSHMANAN, JJ.]
Constitution of India-Articles 14 and 15 (1)-Reservation-
C Reservation-based on domicile residence or institutional preference in
technical and medical courses-Reasonableness-Held, such reservations not
discriminatory or arbitrary given the imbalances and disparities in country-
Reservation restricted to 50% of the seats-Directions issued-Constitution of
India-Articles 41 and 47.
D Constitution ofIndia-Articles 14 and 15 (/)-Reservation-Reservation
based on domicile/residence or institutional preference in technical and medical
courses-Reasonableness-Super-speciality courses-Held, such reservations
impermissible in super-speciality courses.
Constitution ofIndia-Article 15(/)-'Place ofbirth'--Dijference between
E
'Place ofbirth' and 'domicile'l'residence'-Held, the expressions reflect different
concepts and are not the same-Constitution of India-Article 16(2).
Constitution of India-Seventh Schedule-Entry 66, List II and Entry
25, List I/I-Education-Reservation in-Legislation regarding-Competence
F ofStates-Held, in absence ofany Parliamentary legislation, State is competent
to enact statute providing for reservation.
Interpretation ofStatutes-Strict Scrutiny Test and Intermediate &rutiny
Test-Applicability of-Held, can only be applied where legislation is ex facie
unreasonable or puts the life and liberty of a citizen in jeopardy-There is
G presumption of constitutionality of a statute-Constitution of India-Articles
14 and 21.
Considering the question of reservation to technical and medical
courses on the basis of domicile/residence or institutional preference as
H 152
S. CHAUDRI v. U.0.1. 153
provided for by various states, the Court, in its judgment in Dr. Pradeep A
Jain and Ors. v. Union of India and Ors., 11984) 3 SCC 654, held that
wholesale reservation on the basis of domicile or institutional preference,
regardless of merit, is unconstitutional and violative of Article 14 of the
Constitution ol India. However, recognising the factual position as to
inequalities existing in the society aml need for affirmative action and B
following earlier judgments of the Court, the court allowed reservation
based on domicile/residence and institutional preference up to a certain
percentage in MBBS courses. In case of post-graduate courses, the Court
held that though it was not desirable to provide reservation based on
residence requirement or institutional preference, having regard to the
broader considerations of equality of opportunity and institutional C
continuity, the States could provide for reservation on the basis of
institutional preference up to 50% of the total number of open seats. The
Court further directed that there should be no reservation on the basis of
institutional preference in respect of the super-speciality courses and
admission should be granted purely on merit on all-India basis.
D
The percentage of seats to be allotted on all-India basis was modified
by the subsequent judgment of the Court. In Dr. Parag Gupta v. University
of Delhi and Ors., (2000) 5 SCC 684), the Court upheld even residential
preference in post-graduate course in the facts and circumstances of the
case. In Magan Mehrotra and Ors. v. Union of India and Ors., (2003) 3 E
SCALE 101, the Court noted the divergence between the judgment of the
Court in Dr. Pradeep jain and Dr. Parag Gupta and held that apart from
institutional preference, no other preference, including reservation on the
basis of residence was envisaged by the Constitution of India.
Pursuant to the judgment of the Court in Magan Mehrotra, the Delhi F
university issued a notification that only Delhi University medical
graduates would be eligible against the 75% reserved seats for the students
from Delhi and the students who had taken admission in the University/
States under the 15% all-India quota would not be eligible to seek
admission in the P.G. Degree/Diploma Courses of Delhi University against G
the 75% reserved seats.
The petitioners, though original residents of Delhi, had obtained their
MBBS degrees from medical colleges outside Delhi in 15% all-India quota.
they had applied for admission to Post graduate Medical Courses in Delhi.
Being aggrieved by the aforesaid notification, they filed writ petitions H
154 SUPREME COURT REPOR·; S (2003] SUPP. 5 S.C.R.
A before the Court.
The issue, which arose for determination before the Court was
whether any reservation, made on residence or institutional preference,
is violative of Articles 14 and 15 of the Constitution of India.
B The petitioner challenged reservations contending, inter alia, that
reservations, whether based on domicile or institutional preference, would (
be unconstitutional being violative of Articles 14 and 15(1) of the
Constitution of India. The term 'place of birth' was synonymous with the
term \domicile' and therefore, any reservation on the basis of 'domicile'
C would be violative of Article 15(1) of the Constitution of India.
Reservations, whether on the basis of domicile or on the basis of
institutional preference, would be impermissible having regard to the
constitutional scheme and therefore, they would fall within the purview
of 'suspected classification'. Therefore, they must pass the 'strict scrutiny
test' or 'intermediate scrutiny test'.
D
Disposing of the writ petitions with directions, the Court
HELD: Per V.N. Khare, C.J. (for himself and R.C. Lahoti and B.N.
Agrawal, JJ.)
E Validity of reservation on the basis of domicile
1. Reservation on the basis of domicile is not impermissible in terms
of clause (I) of Article IS of the Constitution of India. The term 'place of
birth' occurs in clause (1) of Article 15 but not' domicile'. It may be true
that 'place of birth' appeared to be synonymous with 'domicile' to some
F of the members of the Constituent Assembly but the same cannot be a
guiding factor. If a comparison is made between Article 15(1) and Article
16 (2) of the Constitution of India, it would appear that whereas the former
refers to 'place of birth' alone, the latter refers to both 'domicile' and
'residence' apart from 'place of birth'. A distinction, therefore, has been
G made by the makers of the Constitution themselves to the effect that the
expression 'place of birth' is not synonymous to the expression 'domicile'
and they reflect to different concepts. (171-H; 172-A-BI
D.P. Joshi v. The State of Madhya Bharat and Anr., (19551 1 SCR 1215
and State of Uttar Pradesh and Ors. v. Pradip Tandon and Ors., (19751 1
H sec 267, referred to.
S. CHAUDRI v. U.0.1. 155
Applicability of strict scrutiny test. A
2.1. Article 14 of the Constitution of India forbids class legislation
but permits reasonable classification subject to conditions that it is based
on an intelligible differentia and that differentia must have a rational
relation to the object sought to be achieved. [173-A, BJ
B
Shri Ram Krishna Dalmia v. Justice S.R. Tendolkar and Ors., (1959)
SCR 279, referred to.
2.2. The strict scrutiny test or the intermediate scrutiny test
applicable in the United States of America cannot be applied as such a
test is not applied in India courts. In any event, such a test may be applied C
in the case where the legislation ex facie is found to be unreasonable. Such
a test may also be applied in the case where by reason of a statute the life
and liberty of a citizen is put in jeopardy. This Court since its inception
apart from a few cases where the legislation was found to be ex facie wholly
unreasonable proceeded on the doctrine that constitutionality of a statute D
is to be presumed and the burden to prove contra is on him who asserts
the same. The courts always lean against a construction which reduces
the statute to a futility. A statute or any enacting provision therein must
be so construed as to make it effective and operative on the principle
expressed in the maxim: ut res magis valeat quam pereat. Applying the test
of presumption of constitutionality no case has been made out for invoking E
the doctrine of strict construction or intermediate construction.
(174-F-H; 175-A-B)
C!Tv. Teja Singh, AIR (1959) SC 352 and Tinsukhia Electric Supply
Co. Ltd v. State of Assam, AIR (1990) SC 123, referred to.
F
Validity of reservation by institutional preference
3.1. Reservation by way of institutional preference must be held to
be not offending Article 14 of the Constitution of India. [190-E)
3.2. It is true that the country should strive to achieve a goal of
excellence which In turn would mean that meritorious students should not G
be denied pursuit of higher studies. Ideal situation may have been to see
that meritorious students irrespective of cast, creed, sex, place of birth,
domicile/residence are treated equally but history is replete with situations
to show that India is not ready therefor. Sociological condition prevailing
in India compelled the makers of the Constitution to bring in Articles 15 H
156 SUPREME COURT REPORTS [2003] SUPP. 5 S.C.R.
A and 16 in the Constitution. The said Articles for all intent and purport
are species of Article 14 which is the genus in a sense that they would
provide for exception to the equality clause also. Preference to a class of
persons whether based on caste, creed, religion, place of birth, domicile
or residence is embedded in our constitutional scheme. (175-C, E, Fl
B 3.3. Whereas larger interest of the country must be perceived, the
law makers cannot shut their eyes to the local needs also. Such local needs
must receive due consideration keeping in view the duties of the State
contained in Articles 41 and 47 of the Constitution of India. The test to
uphold the validity of a statute on equality must be judged on the touch-
C stone ofreasonableness. (175-Fl
3.4. Constitutional interpretation is a difficult task. Its concept varies
from statute to statute, fact to fact, situation to situation and subject matter
to subject matter. Perceptions are yet to be perceived by the Court which
would meet all situations while laying down emphasis for achieving
D excellence in all spheres of life keeping in view Chapter IV-A of the
Constitution of India which provide for fundamental duties. Circumstances
and compulsions faced by the State in this behalf led the courts to uphold
a statute providing for reservation for a special class of people. Mostly
they suffer from disability either being belonging to an oppressed
community or by way of economical, cultural or social imbalances. The
E courts should all along strive bard for maintaining a balance. [176-A-C)
Missouri v. Holland, 252 US 416; Jagadish Saran and Ors. v. Union of
India, [198012 SCC 768; D.P. Joshi v. The State ofMadhya Bharat and Anr.,
(19551 1 SCR 1215; Km Chitra Ghosh and Anr. v. Union of India and Ors.,
[196912 SCC 228; D.N. Chancha/a v. The State of Mysore and Ors. [1971)
F 2 SCC 293 and MR. Mini (Minor) represented by her Guardian and Father
MP. Rajappan v. State of Kera/a and Anr. (1980) 2 SCC 216, referred.
3.5. A scheme has been framed by the Court in Dr. Pradeep Jain,
which is a law within the meaning of Article 141 of the Constitution of
India and is binding on all States in terms of Article 144 of the Constitution
G of India. In the said judgment, a distinction was made between the
Undergraduate Course, i.e, MBBS Course and Post Graduate Medical
Course as also super speciality courses. The Court in the said judgment,
therefore, sought to strike a balance of rights and interests of all concerned.
Institutional preference has been preferred in earlier judgments too. There
H is no reason to depart from the ratio laid down by the Court in Dr. Pradeep
S. CHAUDRI v. U.0.1. 157
Jain. (183-A, G, HJ A
Dr. Pradeep Jain and Ors. v. Union of India and Ors., (1984) 3 SCC
654; Jagadish Saran and Ors. v. Union of India, (19801 2 SCC 768; Dr.
Dinesh Kumar and Ors. v. Moti/al Nehru Medical College, Allahabad and
Ors., [1985) 3 SCC 22; Dr. Dinesh Kumar and Ors. (II) v. Motilal Nehru
Medical College, Allahabad and Ors., (1986) 3 SCC 727; Dr. Dinesh Kumar B
and Ors. (III) v. Motilal Nehru Medical College, Allahabad and Ors., (1987)
4 SCC 122; Dr. Dinesh Kumar and Ors. (IV) v. Motilal Nehru Medical
College, Allahabad and Ors., (1987) 4 SCC459; Dr. Dinesh Kumar and Ors.
(V) v. Motilal Nehru Medical College, Allahabad and Ors., (1989) Supp. 2
SCC 428; Dr. Dinesh Kumar and Ors. (VJ) v. Motilal Nehru Medical College, C
Allahabad and Ors., (1987) l SCALE 1232; Dr. Dinesh Kumar and Ors. (VII)
v. Motilal Nehru Medical College, Allahabad and Ors., (1987) 2 SCALE 222;
Dr. Dinesh Kumar and Ors. (VIII) v. Motilal Nehru Medical College,
Allahabad and Ors., (1988) l SCALE 428; Dr. Dinesh Kumar and Ors. (IX)
v. Motilal Nehru Medical College, Allahabad and Ors., (1990) 4 SCC 627;
Dr. Parag Gupta v. University of Delhi Ors., (2000) 5 SSC 684; Magan, D
Methrotra and Ors. v•. Union of India and Ors. (2003) 3 SCALE 101; State
of U.P. and Ors. v. Vineet Singh and Ors., (2000) 7 SCC 262; Abhinava
Aggarwal and Anr. v. Union of India Ors., (2001) 3 SCC ~25; Dr. Prachi
Almeida v. Dean, Medical Co//eg'l and Ors., (2001) 7 SCC 640; K. Duraisamy
andAnr. v. State of Tamil Nadu and Ors., (2001) 2 SCC 538; All India Institute E
of Medical Sciences Students Union v. All India Institue of Medical Sciences
and Ors. (2002) 1 SCC 428; MR. Mini (Minor) representd by her Guardian
and Father MP. Rajappan v. State of Kera/a and Anr., (1980) 2 SCC 216
and Km. N. Vasundhara v. State of Mysore and Anr., (1971) 1 Supp. S~
381, referred to.
F
Relevance of an entry in the State List or Concurrent List
4. Education appears both in Union List as also the Concurrent List
of the Seventh Schedule of the Constitution of India. Argument that
different interpretation is needed having regard to the shift of
constitutional entry from St.ate List to the Concurrent List is not correct. G
Shifting of the entry from the State List to the concurrent list is not
relevant inasmuch as the State, in absence of any Parliamentary Act, has
the legislative competence to enact a statute laying down reservation for
entry in any course of studies including the medical courses.
(187-E, H; 188-E) H
-
158 SUPREME COURT REPORTS (2003] SUPP. 5 S.C.R.
A T.MA. Pai Foundation and Ors. v. State of Karnataka and Ors., [20021
8 sec 481, referred to.
Directions issued by the Court
5.1. Having regard to the facts and circumstances of the case,
B reservation by way of institutional preference should be confined to 50%
of the seats since it is in public interest. [190-H; 191-AJ
Dr. Pradeep Jain and Ors. v. Union of Indian and Ors., [1984] 3 SCC
654, referred to.
Dr. Dinesh Kumar and Ors. v. Motilal Nehru Medical College,
C Allahabad and Ors.. (1985] 3 SCC 22, over-ruled on this aspect.
MR. Balaji and Ors. v. State ofMysore, [1963] Supp. I SCR439, cited.
5.2. For the purpose of selecting the candidates, it is necessary to
hold an All India Entrance Examination by an impartial and reputed body.
D One test should be held for all the students taking admission throughout
the country. The disparity arising from one common entrance test for
admission against 25°/e of the All-India quota and other tests being held
be respective Universities, should be done away with and merit of the
students should be judged on the basis of one test held therefor.
[191-B-D]
E
5.3. In the All India Institute of Medical Sciences (AIIMS) and the
medical colleges of the Central University, merit should have primacy
subject of course to institutional preference to the extent of 50% of the
seats in the MBBS course. In all other respects the decision of the Court
p in All India Institute ofMedical &iences Student Union shall operate.
[191-EJ
All India Institute of Medical Sciences Students' Union v. All India
Institute of Medical &iences and Ors. (2002] I SCC 428, referred to.
5.4. The directions being issued are interim in nature. The Parliament
G having regard to Entry 66, List I of the Seventh Schedule of the
Constitution of India has the legislative competence which would take care
of the country as a whole. While making such a legislation, the Parliament
undoubtedly would take into consideration the special needs of some small
States, having regard to their backwardness-economic, social and
H educational as also geographical conditions. The Parliaments has also the
•
S. CHAUDRI v. U.0.1. 159
legislative competency in terms of Entry 25, List III of the Seventh A
Schedule of the Constitution of India. It, while enacting law for education
and particularly higher education where excellence is required, must also
foresee that in the era of liberalisation and globalisation, Indian citizens
must compete with their counterparts of the developed countries. Merit,
thus, must be allowed to explore to the fullest extent. (191-F-H)
B
5.5. The courts are normally reluctant to issue any direction to the
Central Government for making law. Following the practice, no direction
is being issued in this regard. There is hope and trust that the Central
Government expeditiously considers making legislation or taking such
steps as are necessary in this behalf keeping in view the requirement of C
coordination in higher education in terms of Entry 66, List I of the Seventh
Schedule of the Constitution of India. [192-B, CJ
Per S.B. Sinha, J. (concurring)
6.1. Article 14 of the Constitution of India prohibits discrimination D
in any form. Discrimination at its worst form would be violative of the
basic and essential feature of the Constitution. It is trite that even the
fundamental rights of a citizen must conform to the basic feature of the
Constitution. Preamble of the Constitution in no uncertain terms lays
emphasis on equality. (192-F)
E
Kesavanada Bharti v. State of Kera/a, [1973) 4 SCC 225; L. Chandra
Kumar v. Union of Indian and Ors., [1997) 3 SCC 261 and Maharao Sahib
Shri Bhim Singhji v. Union of India and Ors., (1981) 1 SCC 166, referred
to.
The validity of institutional reservation must be judged on the
F
touchstone of equality clause of the Constitution of India. While
considering the reasonableness of the institutional reservation the effect
of equality clause contained in Articles 14 and 15 of the Constitution of
India has to be taken into consideration. Even applying the strict scrutiny
test, having regard to the present day scenario, institutional reservation G
should be done away with. [195-A, B; 196-8)
Islamic Academy ofEducation and Anr. v. State ofKarnataka arid Ors.,
JT [2003) 7 SC I; Dr. Pradeep Jain and Ors. v. Union of India and Ors.,
[1984) 3 SCC 654 and Bairam Kumawat v. Union of India, [2003) 7 SCC
628, referred to. H
160 SUPREME COURT REPORTS [2003] SUPP. 5 S.C.R.
A Per A.R. Lakshmanan, J. (concurring)
7.1. In the case ofCentral educational institutions and other
institutions of excelleace in the country the scope for reservations is
minimal. At the level of super specialities the rule of "equal chance for
equal marks" dominates. The higher the level of speciality the lesser the
B role of reservation. This view equally applies to all super speciality
institutions. (200-B, CJ
. ...
Dr. Pradeep Jain and Ors. v. Union of Indian and Ors., (1984) 3 SCC
654 and Jagadish Saran and Ors. v. Union of India, (1980) 2 SCC 768,
C referred to.
7.2. As regards the scope of reservation of seats in educational
institutions affiliated and recognised by State Universities, the
constitutional prescription of reservation of 50% of the available seats has
to be respected and enforced. The institutional preference should be limited
D to 50% and the rest beiAg left for open competition based purely on merits
on an ail-India basis. (200-C, DJ
Indra Sawheny v. Union of India, [1992) Supp. 3 SCC 217; Preeti
Srivastava v. State of MP. Air., (1999) SC 2894 and All India Institute of
Medical Sciences Student's Union v. All India Institute of Medical &iences
E and Ors., [2002) I sec 428, referred to.
7.3. In case of aided institutions government/State can prescribe
guidelines as to the process of selection and admission of students. The
Government/State, while issuing guidelines, has to take into consideration
F the constitutional mandate of the requirement of protective discrimination
in matters of reservation of seats as ordained by the decisional law in the
country. Accordingly, the extent of reservation in no case can exceed so•;.
of the seats. The inter-se merit may be assessed on the bas.is of a common
all-India Entrance Test or on the basis of marks as the level of qualifying
examination. [200-E, F)
G
7.4. In case of un-aided institutions, they have large measure of
autonomy even in matters of admission ofstudents as they are not bound
by the constraints of the demands of Article 29 (2) of the Constitution of
India. Nor are they bound by the constraints of obligatory requirements
of Constitutional reservation. [201-A)
H
S. CHAUDRI v. U.0.1. 161
7.5. The position with respect to minority aided institutions is that A
they are bound by requirement of constitutional reservation along with
other regulatory controls. However, the right to admit students of the
Choice being part of the right of religious and linguistic minorities to
establish and administer educational institutions of their choice, the
management of these educational institutions can reserve seats to a B
reasonable extent not necessarily 50%. Out of the Seats left after the
deduction of management quota, the State can require the observance of
the requirement of Constitutional reservation. (200-G, HJ
[Ed.-A.R. Lakshmanan, J. also suggested following options for
streamlining the policies and processes for admission to Medical Courses and C
other Professional Courses]
Entry Qualification
8. For admission to undergraduate programmes, there are several
different eligibility norms among the different categories of institutions D
and among the various States thereby confusing the students from different
parts of the country. The preferred option should be for a designated
agency or the University concerns to conduct the entrance examination
for professional as well as non-professional institutions in the specified
subjects. The marks awarded in those subjects should be the basis for
determining the merit of the students for admission to the institutions to E
which they apply. [196-H; 197-A-C)
Unplanned growth of institutions
9.1. The country needs to evolve urgently a predictable pattern of F
growth for the Higher Education system in Technical, Managerial and
other Professional disciplines as well as in Science and Humanities at least
for the next five years. The present level of ad-hoc approach and stampede
should be eliminated. (197-G]
9.2. The national blueprint and the road map for the development G
of professional education should be based on maintaining credible level
of quality standards and anticipated demand structure in economic and
social sectors. (197-H; 198-A)
H
162 SUPREME COURT REPORTS [2003) SUPP. 5 S.C.R.
A Fee Structure
t 0. One possible remedy is to make a rule under the Prevention of
the Capitation Fee Act that collecting any fee that was not previously
aanounced in the college publications and any fee collected without a
formal receipt should be punishable offences. This rule should be strictly
B enforced. [198-C-D]
Certificate Hassles
11. Every student should be provided with the basic indentity
certificate while he/she is in the higher secondary stage. This should
C provide all essential information such as date of birth, community,
domicile, photo identity etc., authenticated by the designated official. This
should be acceptable for admission requirements in any institution and
in any State in India. (198-F, G)
D CIVIL ORIGINAL JURISDICTION : Writ Petition (C) No. 29 of
2003.
(Under Article 32 to the Constitution of India).
WITH
E
W.P. (C) Nos. 54, 57, 68, 69, 84, 85, 89, 91, 95, 98, 99, 1001.,:003 and
C.A. No. 8581 of 2003
Kailash Vasdev, Shanti Bhushan, M.C. Dhingra, Ms. Gulnar Khan, S.
Sadashiva Reddy, Ms. Sudha Gupta, Syed Ali Ahmad, Syed Tanweer Ahmad,
F Mohan Pandey, A.S. Bhasme, Sanjay Visen, Manoj K. Mishra, S.K.
Bhattacharya, M.N. Shroff, A.D.N. Rao, Rajiv K. Garg, Abhijeet Chatterjee,
Chanchal Kumar Ganguli, Ms. Rekha Pandey, Ms. Sunita Sharma, D.S. Mabra,
Maninder Singh, Ms. Pratibha, M. Singh, Ankur Talwar, Kriti Maan Singh,
A. Mariarputham, Ms. Aruna Mathur, Anurag D. Mathur, Ms. Kamini Jaiswal,
G Ms. Shyonmila Bakshi, Ashok K. Srivastava, Ashok K. Mahajan, K.R.
Sasiprabhu, (NP) Ms. Krishna Sharma, Ms. Asha G. Nair, V.K. Sidharthan,
Anil Srivastav, B.B. Singh, (NP), Ms. H. Wahi, Ms. Aruna Gupta, Ms. A.
Subhashini Satinder S. Gulati, Neeraj Kumar Jain, Ms. Kavita Waida, (NP),
J.S. Attri, Sanjay R. Hegde, Satya Mitra, Anil K. Mihra, KH. Nobin Singh,
U.U. Lalit, S.S. Shinde, Mukesh K. Giri, Ranjan Mukherjee, Ms. Kamakshi
H S. Mehlwal, (NP) Nillay Dutta General for State of Nagaland, Ms. V.D.
S. CHAUDRI v. U.0.1. [KHARE, CJ.] 163
Khanna, S.K. Nandy, R.S. Jena, (NP), Rs. Suri, Ranji Thomas, Ms. Bharati A
Upadhyaya, V.N. Rghupathy, Ms. Sandhya Goswami, (NP), A.T.M. Sampath,
V. Balaji, P.N. Ramalingam, Gopal Singh, Navin Prakash, A.S. Pundir, (NP),
Jatinder Kumar Bhatia, T.C. Sharma, Ms. Neelam Sharma, Ms. Sunita Sharma,
D.S. Mehra, Anis Suhrawardy, Ms. Shamama Anis, V.G. Pragasam, Prakash
Srivastava, Ashok Mathur, Nikhil Nayyar, Gautam Narayan, Mukul Gupta, B
. Ankur Jain and T.A. Khan for the appearing parties.
The Judgments of the Court were delivered by:
V.N. KHARE, CJ. Leave granted in the Special Leave Petition.
The core questions involved in these writ petitions and appeal centres C
round the constitutional validity of reservation whether based on domicile or
institution in the matter of admission into Post Graduate Course in government
run medical colleges.
For determination of the said question factual matrix of the matter, is D
being noticed from Writ Petition (Civil) No. 29 of 2003.
The petitioners who are 52 in number are original residents of Delhi.
They joined various medical colleges out of Delhi for undertaking their MBBS
Courses of studies against the 15% all-India quota on being qualified therefor
in the All India Medical Entrance Exam.ination. E
The appellants intended to join the medical colleges of Delhi for their
Post Graduate Medical Courses. They applied for and were granted admission
forms having regard to the decision of this Court in Dr. Parag Gupta v.
University ofDelhi and Ors.. [2000) 5 SCC 684. In the Bulletin of Information F
issued by the University of Delhi, it was stated, that candidates like the
appellants would be entitled for admission in Post Graduate Courses subject
to the decision of a matter pending in this Court, i.e. Magan Mehrotra and
Ors. v. Union of India and Ors. Since reported in (2003) 3 SCALE 101.
A three-Judge Bench of this Court in Magan Mehrotra (supra) inter G
alia, therein held that from institutional preference, no other preference
including reservation on the basis of residence is envisaged in the Constitution,
in view of the decision of this Court in Dr. Pradeep Jain and Ors. v. Union
of India and Ors., [1984) 3 SCC 654.
H
164 SUPREME COURT REPORTS [2003] SUPP. 5 S.C.R.
A The Delhi University or About 31.12.2002 relying on or on the basis
of the decision of this Court in Magan Mehrotra (supra) issued the following
notification.
"In view of the judgment of the Hon'ble Supreme Court of India
dated 17.12.2002 in Writ Petition (C) No. 417 of 2002. It is hereby
B notified that for admission of P.G. Courses during the Academic
Session 2003, only Delhi University Medical Graduates would be
eligible against the 75% reserved seats of the students from Delhi
who have taken admission in the University/States under the 15%
All-India quota will not be eligible to seek admission in the P.G.,
c Degree/Diploma Courses of Delhi University against the 75% Reserve
Seats. All concern may please be note.
Accordingly the students who have done MBBS under 15% All-
India quota from the University/States other than Delhi University
and have applied for admission to the P.G. Degree/Diploma Courses
D are not eligible to appear in P.G. Medical Entrance Test 2003 to be
held on 9.2.2003. They are advised to apply for the return of the
Bank Draft/Cheque."
The appellants claiming themselves to be "the residents of Delhi" and
"sons of the soil" filed the writ petition in the court questioning the
E aforementioned notification dated 31.12.2002 as also reservation made by
way of institutional preference for admission to Post Graduate Medical
Courses.
A Division Bench of this Court having regard to the decision in Magan
F Mehrotra's case (supra) which was rendered by a three-Judge Bench of this
Court, referred the matter to a Bench of three Judges by order dated 3.2.2003.
However, when the matter was placed before a three-Judge Bench, it by an
order dated 7.2.2003 directed the matter to be placed before a Bench of five
judges considering the importance of the matter; but no reason was assigned
therefor.
G
The question which was initially raised in the writ petition was as to
whether reservation made by way of institutional preference is ultra vires
Articles 14 and 15 of the Constitution of India; but during hearing a larger
issue viz. as to whether any reservation, be on residence or institutional
preference is constitutionally permissible, was raised at the Bar.
H
.._
S. CHAUDRI v. U.0.1. [KHARE, CJ.] 165
In view of the importance of the question involved, this Bench in tenns A
of order dated 1.4.2003 directed issuance of notice to all the States and Union
Territories. Pursuant whereto, except State of A.P. and State of Jammu and
Kashmir all the States filed their returns and were heard.
Shri Harish Salve, learned counsel appearing on behalf of the appellants
raised two contentions in support of the writ petition. He submitted that in B
view of the equality clause contained in Articles 14 and 15 (I) of the
Constitution of India, reservation whether based on domicile or institutional
preference would be unconstitutional. The learned council took us through
the decisions of this Court operating in the filed and urged that in view of
the passage of time no reservation should be pennitted either on the basis of C
residence or on institutional preference. Reservation on residential criteria,
the learned counsel contended, is squarely hit by clause ( 1) of Auricle 15 of
the Constitution of India. Placing reliance on the debates on the subjects at
the time of framing of the Constitution, Shri Salve urged that the 'place of
birth' being synonymous with 'domicile' the observations made contrary
thereto is D.P. Joshi v. The State of Madhya Bharat and Anr., [1955] l SCR D
1215 are not correct.
Shri Salve further contended that in tenns of the constitutional scheme,
reservation is pennissible only when there exist compelling Government
objectives therefor and that too on nominal basis if it can be demonstrated E
that 'rule of merit' should not be allowed to be sustained and when the class
in whose favour a departure is sought to be made constitutes a homogeneous
group and such departure satisfies the tests of social justice for securing
equality upon comparison of such disability suffered by such class or group
of persons. The learned counsel submitted that in the matter of reservation
the State must scrupulously follow the requirements of clause (4) of Article F
15 of the Constitution of India, namely, that the same is needed for the
section of society or a homogeneous class and identified by a presidential
order issued in that behalf.
In a case involving higher education even, Shri Salve argued, such a
provision must be handled with care and keeping in view a large number of G
decision of this Court including MR. Ba/aji and Ors. v. State ofMysore, AIR
[1963] SC 649 = [1963] Supp. I SCR 439 not more than 50% of the total
seats can be reserved. The learned counsel would contend that if such
reservation is prima facie impennissible having regard to the constitutional
scheme the same would fall within the purview of 'suspected classification' H
166 SUPREME COURT REPORTS [2003) SUPP. 5 S.C.R.
A ·and thus, must pass the 'strict scruiting test' or 'intermediate scrutiny test'.
Any executive order providing for such reservation, the learned counsel urged,
must be construed having regard to the preamble, the fundamental rights of
the citizens and in particular Article 19 (I) (d), as also that Directive Principles
of the State Policy as contained in Part IV of the Constitution of India and
in particular Articles 41 and 47 of the Constitution of India. It was argued
B that meritorious students suffer from lack of mobility as contra distinguished
from the mobility of the employees, and are required to be protected so as
to suffer any discrimination only on a specious plea of the State "our money,
our people". Domicile of all the citizens of India, Shri Salve urged, should
be one; as the concept of State domicile has no role to play in our constitutional
C scheme. He emphasized that keeping the same in view, a profile check is
required to be made so far as meritorious students are c:oncerned, as those
who are born and brought up in small town also would like to have higher
education in the metropolitan towns where having regard to the better
infrastructures and higher resources, the institution therein would provide a
better academic pursuit for them. In terms of Article 14 of the Constitution
D of India, Shri Salve argued, students cannot form different class nor any such
classification made amongst them wouid be in public interest. Relying heavily
upon the observations made in paragraph I0 of the judgement of this Court
in Dr. Pradeep Jain's case (supra), the learned counsel submitted that as all
students are entitled to equal opportunities all sorts of reservations must be
E given a go bye.
The learned counsel next contended that in any event, the students, like
the appellants should not be held to have lost their residential status only
because they had gone out of the their State of origin for pursuing their
MBBS Course for a period of five years.
F
According to Shri Salve, Magan Mehrotra (supra)., does not lay down
the correct law and it is required to be overruled.
Assailing reservation by way of institutional preference, Shri Salve,
further submitted that the very premise upon which it is based is fallacious
G inasmuch as the majority of students, in view of the decision of this Court
in Dr. Pradeep Jain's case (supra) having taken admission on the criteria of
domicile alone, would again be considered for pursuing their Post Graduate
Stutlies only on that basis and, thus, reservation by way of institutional
preference would amount to indirect way of doing things as the same would
H for all intent and purport would be based on domicile and tlius, is liable to
S. CHAUDRI v. U.0.1. [KHARE, CJ.] 167
be struck down. A
Shri Salve further contended that Delhi University or the States were
required to place before this Court sufficient materials to prove that such
classification on institutional preference is based on an intelligible differentia
Drawing our attention to the statements made in the counter affidavit, the
learned counsel urged. that no such material has been placed except that the B
said practice is in vogue for a long time.
Shri R.F. Nariman, learned senior counsel appearing on behalf of some
of the students of All India Institute of Medical Sciences (AIIMS) submitted
that in view of the decision of this Court in All India Institute of Medical C
Sciences Students' Union v. All India Institute of Medical Sciences and Ors.,
(2002] I SCC 428, out of 40 students only 6 were offered admission in non-
clinical subjects which the most of the students would not like to pursue Shri
Nariman urged that plight of the students of AIIMS should be considered
having regard to the stand taken by or the practice prevalent in other
Universities, namely, institutional preference and in the view of the matter D
the students of the institution are also entitled to equal opportunity to compete
with students of other Universities.
Shri Shanti Bhushan, learned senior counsel appearing on behalf of
the students of Delhi University, on the other hand, submitted that Magan
Mehrotra's case (supra) has correctly been decided. The learned counsel E
contended that keeping in view the decisions of this Court e.g. D.P. Joshi
(supra), Dr. Jagadish Saran and Others v, Union of India [ 1980] 2 SCC 768
and Dr. Pradeep Jain (supra), it must be held that reservation by way
institutional preference has held the field for a long time. The impugned
notification, Shri Shanti Bhushan urged, having been issuing pursuant of this p
Court, it is futile to urge that the action on the part of Delhi University in
following the 'same has resulted in arbitrarirtess. According to the learned
counsel reservation by way of institutional preference is not only a matter of
convenience but also forms part of the educational policy. If such a policy
is not allowed to have a little play, a student while undergoing different
courses of studies may have to take admissions in different parts of the G
country wherefor he would face problems involving different languages,
different cultures and different environments. It may not be feasible even for
the parents of middle class family to send their children out of the State.
Furthermore, the learned counsel contended that the chances that the local
students would serve the local people cannot be completely ruled out and, H
168 SUPREME COURT REPORTS (2003] SUPP. 5 S.C.R.
A thus, such a criteria cannot be said t.i be illogical or bad in law.
As regard application of strict scrutiny test, Shri Shanti Bhushan relying
on or on the basis of the decision in Shri Ram Krishna Dalmia v. Justice S.R.
Tendolkar and Ors., [1959] SCR 279 submitted that this Court has laid down
the law that the constitutionality of a statute must be presumed and onus to
B prove that the statute is unconstitutional is upon the person who asserts the
same. Only two .tests, namely, as to whether the classification is reasonable
and based on an intelligible differentia stood the test of time and there is no
reason to deviate therefrom. Shri Shanti Bhushan argued that reservation by
way of institutional preference had been holding the field since this Court
C decided Dr. Pradeep Jain's case (supra) and nothing has been pointed out by
the petitioners to show that the said principle should be departed from.
Shri A Mariarputham, learned conusel appearing on behalf of Delhi
University, supplementing the arguments of Shri Shanti Bhushan, submitted
that reservation by way of institutional preference is a definite and identifiable
D criteria and in the view of the matter it satisfies the test of valid classification
as contained in Article 14 of the Constitution of India. The reason assigned
in support of the institutional preference in various decisions of this Court arc
still relevant and such there being no change in the situation, any fresh look
or reconsideration thereof is not warranted. This Court, the learned counsel
E urged that having framed a scheme in Dr. Pradeep Jain's case (supra) which
is binding on all concerned in view of the provisions contained in Articles
141, 142, 143 and 144 of the Constitution of India may not depart therefrom
in view of the fact that this Court in Magan Mehrotra's case (supra) upon
issuance of notice to all States had clearly directed that the law relating in
institutional preference laid down in Dr. Pradeep Jain's case (supra) should
F be followed and in particular directed that the States of Assam, Kamataka,
Tamil Nadu and Goa to follow reservation by way of institutional preference
alone.
The learned counsel contended that all the States have since amended
their rules so as to consider the candidature of those students who hand
G studied in any of the institutions situated in the State on 15% all India quota
and in that view of the matter the said students do not require a further
indulgence. According to the learned counsel apart from the fact that the
students who had gone to purse their MBBS courses outside the State are
entitled to take part in all India open competition, they having regard to the
H amendments made in the rules framed by the States of Karnataka, Assam and
S. CHAUDRI v. U.0.1. [KHARE, CJ.) 169
others being entitled to institutional preference in the State where they had A
studied, may not be held to be entitled to a further indulgence of competing
with the students of Delhi University in 75% quota on the ground that they
· are residents af Delhi and thereby bringing back the concept of reservation
on domicile indirectly again.
Shri Sanjay Hegde, learned counsel appearing on behalf of the State of B
Karnataka, Shri A. Phukan, learned counsel appearing for the State of Assam
and Shri R.S. Suri, learned counsel appearing for the State of Punjab, however,
submitted that the States should be allowed to set apart some seats for the
local candidates. It was pointed out that unlike other studies Post Graduate
Medical Courses involve practical training and the students are required to C
work in the hospitals wherein they are paid stipends by the States. It was
urged that the States have been finding it extremely difficult to get good
number of local doctors to serve the rural population and thus, such a criteria,
according to the learned counsel, cannot be said to be unconstitutional.
Before we embark upon the questions raised at the Bar, we may notice D
that the States before the decision of this Court in Dr. Parag Gupta's Case
(supra) had been following different criteria as regard grant of preference i.e.
either on institution basis or on residence basis or both. The positions prevailing
in different States before and after Dr. Parag Gupta's case (supra) and at
present are given as under:
E
POSITION BEFORE PARAG GUPTA
SI. State Nature of Preference
I. U.P. Institutional
2. Delhi Institutional
F
3. Maharashtra Institutional
4. Gujarat Institutional
5. West Bengal Institutional
6. Assam Residence
7. Tamil Nadu Residence G
8. Goa Residence
9. Karnataka Residence
10. Madhya Pradesh Institutional OR Residence
11. Haryana Institutional OR Residence
H
170 SUPREME COURT REPO;zrs [2003] SUPP. 5 S.C.R.
A 12. Punjab Institutional OR Residence
13. Rajasthan Institutional OR Residence
14. Kera la Institutional OR Residence
15. Orissa Institutional OR Residence
16. Himachal Pradesh Institutional OR Residence
B 17. Bihar Institutional OR Residence
18. Pondicherry 25% all India quota + 37.5% Institutional of
available seats + 37.5% of available
open for all seats
POSITION AFrER PARAG GUPTA
c
SI. State Nature of Preference
I. U.P. Institutional Residence (15%)
2. Delhi Institutional Residence ( 15%)
3. Maharashtra Institutional
D 4. Gujarat Institutional
5. West Bengal Institutional
6. Assam Residence
7. Tamil Nadu Residence
8. Goa Residence (IOYears)
E 9. Kamataka Residence
10. Madhya Pradesh Institutional OR Residence
11. Haryana Institutional OR Residence
12. Punjab Institutional OR Residence
13. Rajasthan Institutional OR Residence
F 14. Kera la Institutional OR Residence
15. Orissa Institutional OR Residence
16. Himachal Pradesh Institutional OR Residence
17. Bihar Institutional OR Residence
18. Pondicherry 25% all India quota + 37.5% Institutional of
G available seats + 37.5% of available seats
open for all
PRESENT POSITION
SI. State Nature of Preference
H I. U.P. Institutional
S. CHAUDRI v. U.0.1. [KHARE, CJ.) 171
2. Delhi Institutional A
3. Maharashtra Institutional \
4. Gujarat Institutional
5. West Bengal Institutional
6. Assam Residence
7. Tamil Nadu Residence B
8. Goa Residence (10 Years)
9. Kamataka Residence (I 0 years)
10. Madhya Pradesh Institutional OR Residence
11. Haryana Institutional OR Residence
12. Punjab Residence c
13. Rajasthan Institutional OR Residence
14. Kerala Institutional OR Residence
15. Orissa Institutional OR Residence
16. Himachal Pradesh Institutional OR Residence
D
17. Bihar Institutional OR Residence
18. Pondicherry 25% all India quota + 37.5% Institutional of
available seats + 37.5% of available seats
open for all
It is neither in doubt nor in dispute that before the scheme was evolved E
in Dr. Pradeep Jain's case (supra), notices had been issued to all the States
all of them were fully heard. But despite the same, the orders, passed by this
Court in Dr. Pradeep Jain's case (supra) had been flouted with impunity,
inter a/ia, by the States of Assam, Kamataka Goa and Tamil Nadu. Now it
transpires that even State of Punjab has also not been following the said
decision. F
The.necessity of issuing notices by this Court ag!jin in Magan Mehrotra's
case (supra) must be considered from that angle. In Magan Mehrota's case
(supra), this Court not only reiterated that the reservation by way of institutional
preference be maintained but also directed the aforementioned States to follow G
the same.
The questions must, therefore, be considered in the aforementioned
factual backdrop.
The first question that arises for consideration is, whether the reservation H
172 SUPREME COURT REPORTS (2003] SUPP. 5 S.C.R.
A on the basis of domicile is impermissible in terms of clause (I) of Article 15
of the Constitution of/ndia? The term 'place of birth' occurs in clause (I)
of Article 15 nut not 'domicile'. If a compassion is made between Article '
15(1) and Article 16 (2) of the Constitution of India, it would appear that
whereas the former refers to 'place of birth' alone, the latter refers to both
B 'domicile' and 'residence' apart from place of birth. A distinction, therefore,
has been made by the makers of the Constitution themselves to the effect that
the expression 'place of birth' is not synonymous to the expression 'domicile'
and they reflect two different concepts. It may be true, as has been pointed
out by Shri Salve and pursued by Mr. Nariman, that both the expressions
appeared to be synonymous to some of the members of the Constituent
C Assembly but the same, in our opinion, cannot be a guiding factor. In D.P.
Joshi 's case (supra), a Constitution Bench held so in no uncertain terms.
This Bench is bound by the said decision.
In State of Uttar Pradesh and Ors. v. Pradip Tandon and Ors., [1975]
D 1 SCC 267 this Court observed:
"The reservation for rural areas cannot be sustained on the ground
that the rural areas represent socially and educationally backward
classes of citizens. This reservation appears to be made for the majority
population of the State. Eighty per cent of the population of the State
E cannot be a homogenous class. Poverty in rural areas cannot be the
basis of classification to support reservation for rural areas. Poverty
is found in all parts of India. In the instructions for reservation of
seats it is provided that in the application form a c~didate for reserved
seats form rural areas must submit a certificate of the District
F Magistrate of the District to which he belonged that he was bom in
rural areas and had a permanent home there, and is residing there or
that he was born in India and his parents and guardians are still living
there and earn their livelihood there. The incident of birth in rural
areas is made the basic qualification. No reservation can be made on
the basis of place of birth, as this would offend Article 15."
G
Answer to the said question must, therefore, be rendered in the negative.
The second question that arises for our consideration is, whether
reservation by way of institutional preference comes within suspected
classification warranting strict scrutiny test?
H
S. CHAUDRI v. U.0.1. [KHARE, CJ.] 173
Once it is held that clause (I) of Article 15 of the Constitution of India A
is not attracted, the only question which survives is as to whether the same
attracts the wrath of Article 14 of the Constitution oflndia. Article 14 forbids
class legislation but permits reasonable classification subject to the conditions
that it is based on an intelligible differentia and that the differentia must have
a rational relation to the object sought to be achieved.
B
In Shri Ram Krishna Da/mia 's case (supra), this Court categorically
held:
" .. .It is now well established that while article 14 forbids class
legislation, it does not forbid reasonable classification for the purpose C
of legislation. In order, however, to pass the test of permissible
classification two conditions must be fulfilled, namely, (i) that the
classification must be founded on an intelligible differentia which
distinguishes persons or things that are grouped together from others
left out of the group and, (ii) that the differentia must have a rational
relation to the objects sought to be achieved by the statute in question. D
The classification may be founded on different bases, namely,
geographical or according to objeets or occupations or the like. What
is necessary is that there must be a nexus between the basis of
classification and the object of the Act under consideration. It is also
well established by the decisions of this Court that article 14 condemns E
discrimination not only by a substantive law but also by a law of
procedure."
The principle enunciated above has been consistently adopted and
applied in subsequents cases. The decisions of this Court further
establish
F
(a) that a law may be constitutional even thought it relates to a single
individual if, on account of some special circumstances or reasons
. applicable to him and not applicable to others, that single individual
may be treated as a class by himself;
G
(b) that there is always a presumption in favour of the constitutionality
of an enactment and the burden is upon him who attacks it to show
that there has been a clear transgression of the constitutional principles;
(c) that is must be presumed that the legislature understands and
H
174 SUPREME COURT REPORTS [2003) SUPP. 5 S.C.R.
A correctly appreciates the need of problems made manifest by
experience and that its discrimination are based on adequate grounds;
(d) that the legislature is free to recognise degrees of harm and may
confine its restrictions to those cases where the need is deemed to be
the clearest;
B
(e) that in order to sustain the presumption of constitutionality the
count may take into consideration matters of common knowledge,
matters of common report, the history of the times and may assume
every state of facts which can be conceived existing at the time of
legislation; and
c
(f) that while good faith and knowledge of the existing c:onditions on
the part of a legislature are to be presumed, if there is nothing on the
face of the law or the surrounding circumstances brought to the notice
of the court on which the classification may reasonably be regarded
as based, the presumption of constitutionality cannot be carried to the
D
extent of always holding that there must be some undisclosed and
unknown reasons for subjecting certain individuals or corporations of
hostile or discrimination legislation.
The above principles will have to be constantly borne in mind by the
E court when it is called upon to adjudge the constitutionality of any
particular law attacked as discriminatory and violative of the equal
protection of the laws."
The strict scrutiny test or the intermediate scrutiny test applicable in the
United States of America as argued by Shri Salve cannot be applied in this
F case. Such a test in not applied in Indian Courts. In any event, such a test
may be applied in a case where a legislation ex facie is found to be
unreasonable. Such at test may also be applied in a case where by reason of
a stature the life and liberty of a citizen is put in jeopardy. This Court since
its inception apart from a few cases where the legislation was found to be ex
G facie wholly unreasonable proceeded on the doctrine that constitutionality of
a statute is to be presumed and the burden to prove contra is on him who
asserts the same. The counts always lean against a construction which reduces
the statute to a futility. A statute or any enacting provision therein must be
so construed as to make it effective and operative "on the principle expressed
in the maxim: ut res magis valeat quam pereat. ''[See Cit v. Teja Singh, AIR
H
S. CHAUDRI v. U.0.1. [KHARE, CJ.] 175
(1959) SC 3520 and Tinsukhia Electric Supply Co. Ltd. v. State of Assam, A
AIR (1990) SC 123.
Applying the test of presumption of constitutionality no case has been
made out for invoking the doctrine of strict construction or intermediate
construction.
B
The third question that arises for our consideration is, whether the
reservation by institutional preference is valid! India is one country and all
its citizens should equally be treated. The essence of equality is enshrined in
Article I 4 of the Constitution of India. But does it mean that equality clause
must be applied to all citizens to all situations? It is true that the country C
should strive to achieve a goal of excellence which in tum would mean that
meritorious students should not be denied pursuit of higher studies. This
itself brings us the question, who is to judge the merit and what are the
standards therefor? It is extremely difficulty. to lay down a fool-proof criteria
.success or failure of a candidate in one examination or the other may not
lead to infallible conclusion as regard the merit of a candidate so as to D
achieve excellence. The larger question, therefore, would be how to and what
extent balance should be struck ..
Ideal situation, although it might have been to see that only meritorious
students irrespective of caste, creed, sex, place of birth, domicile/residence
are treated equally but history is replete with situations to show that India is E
not ready therefor. Sociological condition prevailing in India compelled the
makers of the Constitution to bring in Articles 15 and 16 in the Constitution.
The said Articles for all intent and purport are species of Article 14 which
is the genies in a sense that they provide for exception to the equality clause
also. Preference to a class of persons whether based on caste, creed, religion, p
place of birth, domicile or residence in embedded in our constitutional scheme.
Whereas larger interest of the country must be perceived, the law makers
cannot shut their eyes to the local needs also. Such local needs must receive
due consideration keeping in view the duties of the State contained in Articles
41 and 47 of the Constitution of India.
G
(Emphasis mine)
For the last five decades this Court times without number had adopted
the efficacy of one criteria or the other for giving preference to a section of
students.
H
.176 SUPREME COURT REPORTS [2003] SUPP. 5 S.C.R.
A Constitutional interpretation is a difficult task. Its concept varies from
statute to statute, fact to fact, situation to situation and subject matter to
subject matter. Perceptions are yet to be perceived by the court which would
meet all situations while laying down emphasis for achieving excellence in
all spheres of life keeping in view Chapter IV-A of the Constitution of India
B which provide for fundamental duties, circumstances and compulsions faced
by the State in this behalf led the courts to uphold a statute providing for
reservation for a special class of people. Mostly they suffer from disability
either being belonging to an oppressed community or by way 1Jf economical,
cultural or social imbalances. The courts shall all along strive hard for
maintaining a balance. While interpreting the Constitution, we must notice
C the following view of Justice Homes expressed in Missouri v . Holland, 252
us 416 (433):
"When we are dealing with words that also are a constituent act, like
the Constitution of the United States, we must realise that they have
called into life a being the development of which could not have been
D foreseen completely by the most gifted of its begetters. It was enough
for them to realise or to hope that they had created an organism, it
has taken a century and has cost their successors must sweat and
blood to prove that they created a nation. The case before us must be
considered in the light of our whole experience and not merely in that
of what said a hundred years ago. ''
E
[Emphasis supplied]
Equally important is an elucidation of Justice Frankfurther contained in
an article "Some Reflections on the Reading of Statutes." This Court also
F in Jagadish Saran and Ors. v. Union ofIndian, [1980) 2 sec 768, a decision
which is applicable in the fact situation of this case, stated the law thus:
"Law, constitutional law, is not an omnipotent abstraction or distant
idealization but a principled, yet pragmatic, value-laden and resulted-
oriented, set of propositions applicable to and conditioned by a concrete
G stage of social development of the nation and aspirational imperatives
of the people. India Today-that is inarticulate major premise of our
constitutional law and life."
In D.P. Joshi's case (supra) advantage give to local residents as regard
payment of capitation fee was upheld. A Constitution Bench of this Court in
H
S. CHAUDRI v. U.0.1. [KHARE, CJ.] 177
Km. Chitra Ghosh and Anr. Union of India and Ors., [1969] 2 SCC 228 A
stated the law thus:
"It is the Central Government which bears the financial burden
of running the medical college. It is for it to lay down the criteria for
eligibility. From the very ,J\'ature of things it is not possible to throw
the admission open 1\0 students from all over the country. The B
Government cannot be·denied the right to decide from which sources
the admission will be made. That essentially is a question of policy
and depends inter alia on an overall assessment and survey of the
requirements ofresidents ofparticular territories and other categories
of persons for whom it is necessary to provide facilities for medical C
education. If the sources are properly classified whether on territorial,
geographical or other reasonable basis it is not for the courts to interfere
with the manner and method of making the classification."
[Emphasis supplied]
D
The matter came up for consideration again is D.N. Chanchala v. The
State of Mysore and Ors., [1971) 2 SCC 293 and M.R. Mini (Minor)
represented by her Guardian and Father M.P. Rajappan v. State of Kera/a
and Anrs., [1980) 2 SCC 216, Wherein a similar note was struck.
In Dr. Jagadish Saran's case (supra) this Court had an occasion to E
consider the question as to whether grant of institutional preference was a
valid basis for admission. This case dealt with admission in Post Graduate
Courses of the Delhi University. Krishna Iyer, J. with whom Pathak, J.
concurred in no uncertain terms upheld such preference.
A large number of decisions on the point were taken into consideration F
by this Court in Dr. Pradeep Jain's case (supra). Upon a detailed analysis of
the constitutional provisions, case laws as also the practical difficulties faced
by the States, students as also the institutions, it was held:
" .... What is, therefore, necessary is to set up proper and adequate G
structures in rural areas where competent medical services can be
provided by doctors and some motivation must be provided to the
doctors servicing those areas. But, as the position stands today, there
is considerable paucity of seats in medical colleges to satisfy the
increasing demand of students for admission and some principle has,
H
178 SUPREME COURT REPORTS [2003) SUPP. 5 S.C.R.
A therefore, to be evolved for making' selection of students for admission
to the medical colleges and such principle has to be in conformity
with the requirement of Article 14. Now, the primary imperative of
Article 14 is equal opportunity for all across the nation for education
and advancement, and as pointed out by Krishna lyre, J. in Jagdish
Saran v. Union ofIndia "this has during relevance to our times when
B the country is gradually being 'broken up into fragments by narrow
domestic walls' by surrender to narrow parochial loyalties". What is
fundamental, as an enduring value of our polity, is guarantee to each
of equal opportunity to unfold the full potential of his personality.
Anyone anywhere, humble or high agrestic or urban, man or women,
c whatever be his language or religion, place of birth or residence, is
entitled to be afforded eq.ial change for admission to any secular
educational course for cultural growth, training facility, speciality or
employment. It would run counter to the basic principle of equality
before the law and equal protection of the Jaw if a citizen by reason
of his residence in State A, which ordinarily in the communality of
D cases, would be the result of his birth in a place situate within that
State, should have opportunity for education or advancement which
is denied to another citizen because he happens to be resident in State
B. It is axiomatic that talent is not the monopoly of the residents of
any particular State; it is more or less evenly distributed and given
E proper opportunity and environment, everyone has a prospect of rising
to the peak. What is necessary is equality of opportunity and that
cannot be made dependent upon where a citizen resides. If every
citizen is afforded equal opportunity, genetically and environmentally,
to develop his potential, he will be able in his own way to manifest
his faculties fully leading to all round improvement in excellence.
F The philosophy and pragmatism of universal excellence through .
equality of opportunity for education and advancement across the
nation is part of our founding faith and constitutional creed. The
effort must, therefore, always be to select the best and most meritorious
students for admission to technical institutions and medical colleges
G by providing equal opportunity to all citizens in the country and no
citizen can legitimately, without serious detriment to the unity and
integrity of the nation, be regarded as an outsider in our constitutional
set-up. Moreover, it would be against national interest to admit in
medical colleges or other institutions giving instruction in specialities,
less meritorious students when more menitorious students are available,
H
S. CHAUDRI v. U.0.1. [KHARE, CJ.] 179
simply because the former are permanent residents or residents for a A
certain number of years in the State while the latter are not, though
both categories are citizens of India. Exclusion of more meritorious
students on the ground that they are not resident within the State
would be likely to promote substandard candidates and bring about
fall in medical competence, injurious in the long run to the very
region. "It is no blessing to inflict quacks and medical midgets on B
people by wholesale sacrifice of talent at the threshold. Nor can the
very best be rejected from admission because that will be a national
loss and the interests of no region can be higher than those of the
nation". The primary consideration in selection of candidates for
admission to the medical colleges must, therefore, be merit. The object C
of any rules which may be made for regulating admissions to the
medical colleges must be to secure the best and most meritorious
students."
But it was observed:
D
" ... Whether consistently with the constitutional values, admissions
to a medical college or any other institution of higher learning situate
in a State can be confined to those who have their 'domicile' within
the State or who are residents within the State for a specified number
of years or can any reservation in admission be made for them so as
to given them precedence over those who do not possess 'domicile' E
or residential qualification within the State, irrespective of merit... "
The right of development in a developing country in acknowledged in
International Treaties, Charters and Conventions.
Referring to the State mentality and pointing out of the law that there
F
does not exist any separate State domicile in India, this Court specifically
banished the residential requirement for the purpose of admission into Post
Graduate Medical Courses for all times. It directed:
"So much for admission to the MBBS course, but different G
consideration must prevail when we come to consider the question of
reservation based on residence requirement within the State or on
institutional preference for admission to the post-graduate courses,
such as, MD, MS and the like. There we cannot allow excellence to
be compromised by any other considerations because that would be
H
. I
180 SUPREME COURT REPORTS [2003] SUPP. 5 S.C.R.
,,
A detrimental to the interest of the nation. It was rightly pointed out by
Krishna Iyer, J. in Jagadish Saran case, and we wholly endorse what
he has said:
The basic medical needs of a region or the preferential push
justified for a handicapped group cannot prevail in the same measure
B at the highest scales of speciality where the best skill or talent, must
be handpicked by selecting according to capability. At the level of
Ph.D. MD, or levels of higher proficiency, where intentional measure
of talent is made, where losing one great scientist or technologist in-
the-making is a national loss, the considerations we have expanded
c upon as important lose their potency. Here equality measured by
matching excellence, has more meaning and cannot be diluted much
without grave risk. sec pp. 778-79' para 23.
* * *
D If equality of opportunity for every person in the country is the
constitutional guarantee, a candidate who gets more marks than another
is entitled to preference for admission. Merit must be the test when
choosing the best, according to this rule of equal chance for equal
marks. This proposition has greater importance when we reach the
higher levels of education like post-graduate courses. After all, top
E technological expertise in any vital field like medicine is a nation's
human asset without which its advance and development will be
stunted. The role of high grade skill or special talent may be less at
the lesser levels of education, jobs and disciplines of social
inconsequence, but more at the higher levels of sophisticated skills
and strategic employment. To devalue merit at the summit is to
F
temporise with the country's development in the vital areas of
professional expertise. In science and technology and other specialised I
fields of developmental significance, to relax lazily or easily in regard
to exacting standards of performance may be running a grave national
risk because in advanced medicine and other critical departments of
G higher knowledge, crucial to material progress, the people of India
should not be denied the best the nation's talent lying latent can
produce. If the best potential in these fields in cold-shouldered for
populist considerations garbed as reservations, the victims, in the
long run, may be the people themselves. Of course, this unrelenting
strictness in selecting the best may not be so imperative at other
H
S. CHAUDRI v. U.0.1. [KHARE, CJ.) 181
levels where a broad measure of efficiency may be good enough and A
what is needed is merely to weed out the worthless. SCC p. 785, para
39.
* * *
Secondly, and more importantly, it is difficult to denounce or B
renounce the merit criterion when the selection is for postgraduate of
post-doctoral courses in specialised subjects. There is no substitute
for sheer flair, for creative talent, for fine-tuned performance at the
difficult heights of some disciplines where the best alone is likely to
blossom as the best. To sympathise mawkishly with the weaker
sections by selecting sub-standard candidates, is to punish society as C
a whole by denying the prospect of excellence say in hospital service.
Even the poorest, when stricken by critical illness, needs the attention
of super-skilled specialists, not humdrum second-rates.
So it is that relaxation on merit, by overruling equality and quality
altogether, is a social risk where the stage is post-graduate or post- D
doctoral. sec p. 786, para 44.
These passages from the judgment of Krishna Iyer, J. clearly and
forcibly express the same view which we have independently reached
on our own and indeed that view has been so ably expressed in these
passages that we do not think we can usefully add anything to what E
has already been said there. We may point out that the Indian Medical
Council has also emphasized that playing with merit, so far as
admissions to post-graduate courses are concerned, for pampering
local feeling, will boomerang. We may with advantage reproduce the
recommendation of the Indian medical Council on this point which F
may not be the last word in social wisdom but is certainly worthy of
consideration:
Students for post-graduate training should be selected strictly on
merit judged on the basis of academic record in the under graduate
course. All selection for post-graduate studies should be conducted G
by the Universities.
The Medical Education Review Committee has al§o expressed the
opinion that. "all admissions to the post-graduate courses in any
institution should be open to candidates on an all-India basis and
there should be no restriction regarding domicile in the State/Union H
182 SUPREME COURT REPORTS [2003) SUPP. 5 S.C.R.
A Territory in which the institution is located". So also in the policy
statement filed by the learned Attorney-General, the Government of
India his categorically expressed the view that:
So far as admission to the institutions of post-graduate colleges
and special professional colleges is concerned, it should be entirely
B on the basis of all-India merit subject to constitutional reservations in
favour of Scheduled Castes and Scheduled Tribes.
We are therefore of the view that so far as admissions to
postgraduate courses, such as MS, MD and the like are concerned, it
would be eminently desirable not to provide for any reservation based
c on residence requirement within the State or on institutional preference.
But, having regard to broader considerations of equality of opportunity
and institutional continuity in education which has its own importance
and value, we would direct that though residence requirement within
the State shall not be a ground for reservation in admissions to post-
D graduate courses, a certain percentage of seats may in the present
circumstances, be reserved on the basis of circumstances, be reserved
on the basis of institutional preference in the sense that a student who
has passed MBBS course from a medical college or university, may
be given preference for admission to the post-graduate course in the
same medical college or university but such reservation on the basis
E of institutional preference should not in any event exceed 50 per cent
of the total number of open seats available for admission to the post-
graduate course. This outer limit which we are fixing will also be
subject to revision on the lower side by the Indian Medical Council
in the same manner as directed by us in the case of admission to the
F MBBS t:ourse. But, even in regard to admissions to the post-graduate
course, we would direct that so far as super specialities such as neuro-
surgery and cardiology are concerned, there should be no reservation
at all even on the basis of institutional preference and admissions
should be granted purely on merit on all-India basis."
G It in no uncertain terms directed:
"The decisions reached by us in these writ petitions will bind the
Union of Indian, the State Governments and Administrations of Union
Territories because it lays down the law for the entire country and
moreover we have reached this decision after giving notice to the
H Union oflndia and all the State Governments and Union Territories... "
S. CHAUDRI v. U.0.1. [KHARE, CJ.] 183
A scheme, thus, came to be framed by this Court which is a law a A
within the meaning of Article 141 of the Constitution oflndian and is binding
on all the States in terms of Article 144 of the Constitution of India. The
principal considerations which weighed with the court for arriving at the
aforementioned conclusion were:
"' ... There can be no doubt that the policy of ensuring ·admission to B
the MBBS Course on all-India basis is a highly desirable policy,
based as it is on the postulate that India is one nation and every
citizen of India is entitled to have equal opportunity for education
and advancement, but it is an ideal to be aimed at and it may not be
realistically possible, in the present circumstances, to adopt it, for it C
cannot produce real equality of opportunity unless there is complete
absence of disparities and inequalities-a situation which simply does
not exist in The country today. There are massive social and economic
disparities and inequalities not only between State and State but also
between region and region within a State and even between citizens
and citizens within the same region. There is a yawning gap between D
the rich and the poor and there are so many disabilities and injustices
from which the poor suffer as a class that they cannot avail themselves
of any opportunities which may in law be open to them. They do not
have the social and material resources to take advantage of these
opportunities which remain merely on paper recognized by law but E
non-existent in fact. Students from backward States or regions will
hardly be able to compete with those from advanced States or regions
because, though processing an intelligent mind, they would have had
no adequate opportunities for development so as to be in a position
to compete with others. So also students belonging to the weaker
sections who have not, be reason of their socially or economically F
disadvantaged position, been able to secure education in good schools
would be at a disadvantage compared to students belonging to .the
effluent or well-to-do families who have had the best of school
education and in open all-India competition, they would be likely to
be worsted ..."
G
A distinction was made therefor between the Undergraduate Course
i.e., MBBS course and Post Graduate Medical Course as also super speciality
courses. The Court, therefore, sought to strike a balance of rights and interests
of all concerned.
H
184 SUPREME COURT REPORTS [2003] SUPP. 5 S.C.R.
A However, the percentage of seats to be allotted on all-Indian basis
however, came to be modified in Dr. Dinesh Kumar and Ors. v. Motial
Nehru Medical College, Allahabad and Ors., [ 1985] 3 SCC 22 in the following
terms:
"We would also like to clear up one misunderstanding which
B seems to prevail with some State Governments and universities in
regard to the true import of our Judgment dated June 22, 1984. They
have misinterpreted our Judgment to mean that 30% of the total
number of seats available of admission MBBS course in a medical
college should be kept free from reservation on the basis of residence
c requjrement or institutional preference. That is a total misreading of
our Judgement. What we have said in our Judgement is that after
providing for reservation validly made, whatever seats remain available
for non-reserved categories, 30% of such seats at the least, should be
left free for open competition and admission to such 30% open seats
should not be based on residence requirement or institutional
D preference but. students from all over the country should be able to
compete for admissions to such 30% open seats. To take an example,
suppose there are I 00 seats in a medical college or university and
30% of the seats are validly reserved for candidates belonging to
Scheduled Castes and Scheduled Tribes. That would leave 70 seats
available for others belonging to non-reserved categories. According
E
to our Judgment, 30% of 70 seats, that is, 21 seats out or 70 and not
30% of the total number of 100 seats, namely, 30 seats, must be filled
up by open competition regardless of residence requirement or
institutional preference."
F Changes were made in the formula in Dr. Dinesh Kumar and Ors. (II)
v. Motial Nehru Medical College, Allahabad and Ors., (1986] 3 SCC 727 at
page 733. This Court thereafter times without number issued directions from
time to time regulating admissions in different courses of studies, meticulous
supervision and conduct of examinations by the Universities as also all-
Indian tests in the following:
G
I. Dr. Dinesh Kumar (III) [1987] 4 sec 122
2. Dr. Dinesh Kumar (IV) [1987] 4 sec 459
3. Dr. Dinesh Kumar (V) [1989) Supp. 2 sec 428
H
S. CHAUDRI v. U.0.1. [KHARE, CJ.] 185
4. Dr. Dinesh Kumar (VI) [1987] 1 SCALE 1232 A
5. Dr. Dinesh Kumar (VII) [ 1987] 2 SCALE 222
6. Dr. Dinesh Kumar (VIII) [I 988] I SCALE 428
7. Dr. Dinesh Kumar (IX) [I990J 4 sec 627 B
The State of Assam, it appears, was specifically directed to follow
institutional preference by this Court. by an order dated 2.2.1996 in Write
Petition (Civil) No. 625 of 1995.
A deviation to the said dicta, however, was sought to be made by a C
two-Judge Bench of this Court in Dr. Parag Gupta's case (supra). In the said
}
decision some of the students complained that whereas the students who had
undergone studies in other Universities were entitled to reservation by way
domicile or institutional preference, but they, although had successfully
competed in All India Entrance Test in MBBS Course, are not being permitted D
to compete with their fellow students of Delhi University on the ground of
institutional preference, although they belong to the same class of students.
This Court in Dr. Parag Gupta (supra) did not lay down any law. It
dealt with the situation on equitable and humanitarian grounds but while
doing so it indisputable deviated from the law laid down in Dr. Pradeep E
Jain's case supra only by way of an interim arrangement. It inadvertently
created reservation on domicile which was forbidden in Dr. Pradeep Jain's
case supra. The said provisional directions being binding on Delhi University
came to be following subsequent years. The sympathetic consideration shown
by this Court in Dr. Parage Gupta's case (supra) came to be misapplied by
the Allahabad High Court in Vineet Singh 's case wherein the High Court F
directed consideration of cases of the students who belonged to the State of
U.P. irrespective of the fact that whether they had gone out of their home
State on 15% all-India quota or not. This Court in State of UP. and Ors. v.
Vineet Singh and Ors., [2000] 7 SCC 262 clarified the position holding that
the High Court war wrong in extending the benefit in Dr. Parag Gupta's case G
supra to other students and reiterated that Dr. Parag Gupta's decision was
confined to the students who had gone to other States under 15% all-India
quota. The ratio of the judgment iii Dr. Parag Gupta's case (supra) came to
be reiterated in Abhinav Aggarwal and Anr. v. Union of Indian and Ors.,
[20011 3 sec 425.
H
186 SUPREME COURT REPORTS (2003] SUPP. 5 S.C.R.
A In Dr. Prachi Almeida v. Dean, Gna Medical Collage and Ors., [2001]
7 SCC 640, a problem was faced by a :;tudent from Delhi who was admitted
into Goa Medical College under the 15% all-India quota. She was denied
admission in Goa on the ground that she was not resident of the said State.
She, however, was married in Goa. This Court followed Dr. Pradeep Jain's
case (supra) and directed that the student cannot be denied admission on the
B basis of residence requirement holding that if the candidate has done MBBS
Course in that State such a candidate would be eligible for admission in Post
Graduate Medical Course therein.
Some students of the Delhi University, thereafter filed a writ petition
C questioning the residential reservation in Magan Mehrotra and Ors. v. Union
of India and Ors., since reported in (2003) 3 SCALE IOI. A Bench of this
Court therein by an order dated 11.09.2002 noticing the conflict between the
decisions in Dr. Pradeep Jain (supra) on the one hand and Dr. Parag Gupta <
(supra) on the other, issued notices to all the States excepting the States of
Jammu and Kashmir and Andhra Pradesh and referred the matter to a three-
D Judge Bench. In Magan Mehrotra (supra) this Court held that the decision in
Dr. Parag Gupta (supra) is contrary to the decision in Dr. Pradeep Jain
(supra) stating:
" ......A bare look at the judgement of the 3-Judge Bench in Pradeep
Jain's case and two-Judge Bench in Parag Gupta's case in relation
E to the question of preference in the post graduate course it cannot but
be held that the Parag Gupta's case took a different view by upholding
the residential preference, in essence, which was contrary to the
judgement of the three-Judge Bench in Pradeep Jain's case.
Independently on examining the 7 issue of preference, we are also of
F the considered opinion that the decision rendered by this Court in
Pradeep Jain's case had taken a correct criteria into consideration
and we therefore, agree with the principles evolved and the ratio
given in Pradeep Jain's case so far as it relates to admission into the
post graduate courses and the question of institutional preference to
be given to those who had studied their under graduate courses in the
G very institutions against the 15% quota on the All India basis. In this
view of the matter, the impugned Bulletin of Information issued by
the Delhi University in relation to the Post-doctoral (D.M./M.Ch.)
Post Graduate Degree must be held to be contrary to the direction of
this Court in Pradeep Jain's case and the same is accordingly quashed.
H However, this order shall be made effective form the next academic
S. CHAUDRI v. U.0.1. [KHARE, CJ.] 187
session. We, however, direct the States of Assam, Tamil Nadu, Goa A
and Kamataka to follow the pattern of institutional preference as has
been indicated by this Court in Pradeep Jain's case and reiterated by
us today ... ".
We may, however, notice that this Court in K Duraisamy and Anr. v.
State of Tamil Nadu and Ors., [2001] 2 SCC 538 upheld the sources for B
admission by giving preference to the doctors working in the hospitals in the
Post Graduate Courses on the ground that the same constitutes a valid
classification.
The discussions on this topic would remain incomplete if we fail to C
notice a recent decision of this Court in All India Institute ofMedical Sciences
Student's Union (supra) rendered by one of us, Hon 'hie Lahoti, 1. wherein
this Court, keeping in view the peculiar situation obtaining in the case of
AIIMS, held institutional reservation to be unconstitutional. It, however,
keeping in view the necessity of giving institutional preference to students
who had studied from AIIMS, directed that such preference be given to the D
extent of 25% of students instead of 33%. However, keeping in view the fact
that there were 40 seats in MBBS Course whereas 132 seats in Post Graduate
Courses, the institutional preference to be given to the students of AIIMs
came to about 82.5%.
In this context it is relevant to examine the relevance of entry in the E
State List of Concurrent List.
'Education' appears both in Union List as also in the Concurrent List.
The relevant entries in the Constitution are as under:
"66. List I-Co-ordination and determination of standards in institutions F
for higher education or research and scientific and technical
institutions.''
"25. List III~Education, including technical education, medical
education and universities, subject to the provisions of entries 63, 64, G
65 and 66 of List I; vocational and technical training of labour."
An argument has been advanced that different interpretation is needed
having regard to the shift of constitutional entry from List II to List III. One
of us in T.MA. Pai Foundation and Ors., v. State of Karantaka and Ors.,
[20021 s sec 48, had to say the following: H
188 SUPREME COURT REPORTS [2003) SUPP. 5 S.C.R.
A "Further, under clause (2) of Article 246 Parliament and subject
to clause ( l) the legislature of any State are empowered to make law
with respect to any of the matters enumerated in List III Seventh
Schedule and under clause (3) of Article 246, the legislature of any
State is empowered to enact law with respect to any to the matters
enumerated in List II in the Seventh Schedule subject to clauses (I)
B and (2). From the aforesaid provisions it is clear that it is Article 246
and other articles which either empower Parliament or the State
Legislature to enact law and not the entries finding place in three lists
of the Seventh Schedule. Thus the function of entries in three lists of
the Seventh Schedule us to demarcate the area over which the
c appropriate legislatures can enact laws but do not confer power either
on Parliament or the State Legislatures to enact laws. It may be
remembered, by transfer of the entries, the character of the entries is
not lost or destroyed. In this view of the matter by transfer of contents
of Entry 1I of List II to List III as EntrY 25 has not denuded the
power of the State Legislature to enact law on the subject "Edur.ation"
D but has also conferred power on Parliament to enact law on the subject
' 'Education''.
Shifting of the entry from the State List of the Concurrent List is not,
thus, relevant inasmuch the State in absence of any Parliamentary act has the
E legislative competence to enact a statute laying down reservation for entry in
any course of studies including the medical courses.
The sole question, therefore, is as to whether reservation by way of
institutional preference is ultra vires Article 14 of the Constitution of India.
We think not. Article 14, it will bear repetition to state, forbids class legislation
F but does not forbid reasonable classification, which means-( 1) must be based
on reasonable and intelligible differentia; and (2) such differentia must be on
rational basis.
Hence, we may also notice the argument, whether institutional reservation
fulfils the aforementioned criteria or not must be judge on the following :-
G
I. There is a presumption of constitutionality;
2. The burden of proof is upon the writ petitioners as they have
questioned the constitutionality of the provisions;
H 3. There is a presumption as regard the State's power on extent of
S. CHAUDRI v. U.0.1. [KHARE, CJ.] 189
its legislative competence; A
4. Hardship of few cannot be the basis for determining the validity
of any statute.
The court while adjudicating upon the constitutionality of the provisions
of the statute may notice all relevant facts whether existing or conceived. B
This Court may therefore notice the following:
(i) .
The State runs the Universities.
(ii) It has to spend a lot of money in imparting medical education to C
the students of the State.
(iii) Those who get admission in Post Graduate Courses and also
required to be paid stipends. Reservation of some seats to a
reasonable extent, thus, would not violate the equality clause.
(iv) The criteria for institutional preference has now come to stay. It
D
has worked out satisfactorily in most of the States for last about
two decades.
(v) Even those States which defied the decision of this Court in Dr.
Pradeep Jain's case (supra) had realized the need for institutional E
preference.
(vi) No sufficient material has been brought on record for departing
form this well-established admission criteria.
(vii) It goes beyond any civil of doubt that institutional preference is F
based on a reasonable and identifiable classification. It may be
that while working out the percentage of reservation invariably
some local students will have preference having regard to the
fact that domicile/residence was one of the criteria for admission
in MBBS Course. But together with the local students 15%,
students who had competed in all India Entrance Examination G
would also be getting the same benefit. The percentage of students
who were to get the benefit of reservation by way of institutional
preference would further go down if the decision of this Court
in Dr. Pradeep Jain's case supra is scrupulously followed.
H
190 SUPREME COURT REPORTS [2003] SUPP. 5 S.C.R.
A (viii) Giving of such a preference is a matter of State poiicy which can
be invalidated only in the event of being violative of Article 14
of the Constitution of India.
(ix) The students who would get the benefit of institutional preference
being on indentifiable ground, there is hardly any scope.
B
(x) for manipulation.
In Km. N. Vasundara v. State of Mysore and Anr., [1971] Supp. SCR
38 l, it was observed:
C "But cases of hardship are likely to arise in the working of almost
any rule which may be framed for selecting a limited number of
candidates for admission out of a long list. This, however, would not
render the rule unconstitutional."
As noticed hereinbefore, in D.N. Chanchala's case (supra), MR. Minis 's
D case (supra) and Jagadish Saran's case (supra) institutional preferences has
been preferred. It has been reiterated in the law laid down by way of a
scheme evolved in Dr. PradeepJain (supra) and reiterated in Magan Mehrotra
(supra).
We, therefore, do no find any reason to depart from the ratio laid down
E by this Court in Dr. Pradeep Jain (supra). The logical corollary of our finding
is that reservation by way of institutional preference must be held to be not
offending Article 14 of the Constitution of India.
However, the test to uphold the validity of a statute on equality must
F be judged on the touch-stone of reasonableness. It was noticed in Dr. Pradeep 's
Jain's case (supra) that reservation to the extent of 50% was held to be
reasonable. Although subsequently in Dr. Dinesh Kumar's case supra it was
reduced to 25% of the total seats. The said percentage of reservation was
fixed keeping in view the situation as then existing. The situation has now
changed to a great extent. Twenty years have passed. The country has during
G this time have produced a large number of Post Graduate doctors. Our
Constitution is organic in nature. Being a living organ, it is ongoing and with
the passage of time, law must change. Horizons of constitutional law are
expanding.
Having regard to the facts and circumstances of the case, we are of the
H
S. CHAUDRI v. U.0.1. (KHARE, CJ.] 191
opinion that the original scheme as framed in Dr. Pradeep Jain's case (supra) A
should be reiterated in preference to Dr. Dinesh Kumar's case (supra).
Reservation by way of institutional preference, therefore, should be confined
to 50% of the seats since it is in public interest.
For the purpose of selecting the candidates, it is necessary to hold an
All India Entrance Examination by an impartial and reputed body. We must, B
therefore, lay down the criteria therefor. AIIMS in terms of an order passed
by this Court has been conducting the said examination. It may continue to
do so unless a competent body is created by the Central Government in terms
of a Parliamentary Act or otherwise. All expenses for conducting such
examination shall be borne by the Central Government which would also C
provide the requisite infrastructure therefor. One test shall be held for all the
students taking admission throughout the country. This order is passed keeping
in view the fact that now one common entrance test is held for admission
against 25% of all India quote and other tests are being held by the respective
Universities. Disparities in such tests should be done away with and merit of
the students should be judged on the basis of one test held therefor. D
AIIMS is an institution of excellence. It is a class by itself and pride.
We are, therefore, of the opinion that in the AIIMS and the medical colleges
of the Central University, merit should have primacy subject of course to
institutional preference to the extent of 50% of the total seats in the MBBS E
Course. In all other respects the decision of this Court in All India Institute
of Medical Sciences Students' Union's case (supra) shall operate.
Our directions aforementioned, however, are interim in nature. The
Parliament having regard to Entry 66, List I of the Seventh Schedule of the
Constitutioh of India has the legislative competence which would take care F
of the country as a whole. While making such a legislation, the Parliament
undoubtedly would take into consideration the special needs of some small
States, having regard to their backwardness economic, social and educational
as also geographical conditions.
The Parliament has also the legislative competence in terms of Entry G
25, List III of the Seventh Schedule of the Constitution. It for education and
particularly higher education where excellence is required, while enacting
law must also foresees that in the era of liberalisation and globalisation,
Indian citizens must compete with their counter-parts of the developed
countries. Merit, thus, must be allowed to explore to the fullest extent. Genius H
192 SUPREME COURT REPORTS [2003) SUPP. 5 S.C.R.
A hidden in the citizens must be allowed to blossom. Despite 55 years of
India's existence as an independent nation, a National policy on higher
education has not come into being. Its significance and importance was
highlighted in Dr. Pradeep Jain's case (supra); but the Parliament did not
pay any heed thereto.
B The courts are normally reluctant to issue any direction to the Central
Government for making law. Following our practice, we refrain ourselves to
issue any direction in this regard. We hope and trust that the Central
Government expeditiously consider of making legislation or taking such steps
as are necessary in this behalf keeping in view the requirement of coordination
C in higher education in terms of Entry 66, List I of the Seventh Schedule of
the Constitution of India.
For the aforesaid reasons, we do not find any merit in the contentions
advanced on behalf of the petitioners. The petitioners are not entitled to any
relief. With the aforesaid directions, these writ petitions and the appeal arc
D disposed for.
'
There shall be no order as to co~ts.
S.B. SINHA, J. I have had the advantage o,f reading the draft opinion
of Hon 'ble the Chief Justice of India. While concurring with the said judgment,
E I would like to add a few words of mine.
The core question involved in these appeals is as to whether by providing
for institutional reservation, the equality clause is violated.
Article 14 of the Constitution of India prohibits discrimination in any
F form. Discrimination at its worst form would be violative of the basic and
essential feature of the Constitution. It is trite that even the fundamental
rights of a citizen must conform to the basic feature of the Constitution.
Preamble of the Constitution in no uncertain terms lays emphasis on equality.
G In Kesavanada Bharati v. State of Kera/a. (1973) 4 SCC 225 Shefat
and Grover, JJ. stated that :
"562.... (5) The dignity of the individual secured by the various
freedoms and basic rights in Part III and the mandate to build welfare
State contained in Part IV would be violative of basic feature of the
H Constitution of India".
S. CHAUDRI v. U.0.1. [S.B. SINHA, J.] 193
Further, Hegde and Mukherjea, JJ stated the law thus: A
"661... The broad contours the basic elements or fundamental features
of our Constitution are clearly delineated in the preamble. Unlike in
most of the other Constitution, it is comparatively easy in the cased
of our Constitution to discern and determine the basic elements or the
fundamental features of our Constitution. For doing so, one has only B
to look to the preamble.''
Kesavanada Bharati (supra) has been followed in L. Chandra Kumar
v. Union of India and Ors., [1997] 3 SCC 261.
In Maharao Sahib Shri Bhim Singhji v. Union ofIndia and Ors., [1981] C
I SCC 166 Krishna Iyer, J., however, in his characteristic style opined:
"20 .... The question of basic structure being breached cannot arise
when we examine the vires of an ordinary legislation as distinguished
from a constitutional amendment. Keasavananda Bharati cannot be
the last refuge of the Proprietariat when benign legislation takes away D
their excess for societal weal. Nor, indeed, can every breach of equality
spell disaster as a lethal violation of the basic structure. Peripheral
inequality is inevitable when large-scale equalization processes are
put into action. If all the judges of the Supreme Court in solemn
session sit and deliberate for half a year to produce a legislation for E
reducing glaring economic inequality their genius will let them down
if the essay is to avoid even peripheral inequalities. Every large cause
claims some martyr, as sociologists will know. Therefore, what is a
betrayal of the basic feature is not a mere violation of Article 14 but
a shocking, unconscionable or unscrupulous travesty of the
quintessence of equal justice. If a legislation does go that far it shakes F
the democratic foundation and must suffer the death penalty."
Recently a question came up before the US Supreme Court in Jennifer
Gratz and Prick Hamacher v. Lee Boillinder decided. on 23rd June, 2003
likely to be reported in (2003) 539 U.S. wherein the guidelines providing for
' selection method under which every applicant from an under-represented G
racial or ethnic minority groups was to be automatically awarded 20 points
out of I00 points needed to guarantee admission, was struck down as has
been violative of equality protection clause. It was observed:
"The very nature of a college's permissible practice of awarding H
194 SUPREME COURT REPORTS [2003) SUPP. 5 S.C.R.
A value to racial diversity means that race must be considered in a way
that increases some applicants' chances for admission Since college
admission is not left entirely to inarticulate intution, it is hard to see
what is inapproriate in assigning some stated value to a relevant
characteristic, whether it be reasoning ability, writing style, running
speed or minority race. Justice Powell's plus factors necessarily are
B assigned some values. The college simply does by a numbered scale
what the law school accomplishes in its "holistic review," Grutter,
post, at 25 the distinction does not imply that applicants to the
undergraduate college are denied individualized consideration or a
fair chance to compete on the basis of all the various merits their
c applications may disclose."
Delivering his minority opinion on his own behalf as also on behalf of
Justice Souter, Justice Ginsburg, however, held:
"Our jurisprudence ranks race a "suspect" category, "not because
D (race) in inevitably an impermissible classification, but because it is
one which usually, to our national shame has been drawn for the
purpose of maintaining racil inequality." Norwalk Core v. Norwalk
Redevelopment Agency, 395 F. 2d 920, 931-932 (CA2 1966) (footnote
omitted). But where race is considered ''for the purpose of achieving
equality" Id., at 932, no. automatic proscription is in order. For as
E insightfully explained, "the Constitution is both color blind and color
conscious. To avoid conflict with the equal protection clause, a
classification that denies a benefit causes harm or imposes a burden
must not be based on race. In that sense, the Constitution is color
blind. But the Constitution is color conscious to prevent discrimination
being perpetuated and to undo the effects of past discrimination.
F
"United States v. Jefferson Country Bd. of Ed., 372 F2d 835, 876
(CA5 1966) (Wisdom., J.) see Wechsler, The Nationalization of Civil
Liberties and Civil Rights Supp. To 12 Tex. Q. 10 23 (1968) (Brown
may be seen as disallowing racial classifications that) ("imply an
invidious assessment'' while allowing such classifications when "not
G individous in implication" but advanced to "correct inequalities").
Contemporary human rights documents draw just this line. They
distinguish between policies of oppression and measures designed to
accelerate defacto equality See Grutter, post, at 1 (Ginsburg, J.
concurring) (citing the United Nations-initiated Conventions on the
Elimination of All Forms of Racial Discrimination and on the
H
S. CHAUDRI v. U.0.1. [S.B. SINHA,J.] 195
Elimination of All fonns of Discrimination against Women)." f\.
The validity of institutional reservation must by judged on the touchstone
of equality clause.
While considering the reasonableness of the institutional reservation,
we have taken into consideration the effect of equality clause contained in B
Articles 14 and 15 of the Constitution of India.
The question as regard merit of the students vis-a-vis right of
development and human rights angle had been considered at some length in
Islamic Academy of Education and Anr. v. State of Karnataka and Ors., JT
(2003) 7 SC 1 and following Pradeep Jain v. Union of India, (1984) 3 SCC C
554 it has been held:
For the purpose of achieving excellence in a professional institution,
merit indisputably should be a relevant criterion. Merit, as has been
noticed in the judgment, may be detennined in various ways (Para
59). There cannot be, however, any fool-proof method whereby and D
whereunder the merit of a student for all times to come may be
judged. Only, however, because a student may fare differently in a
different situtation and at different point of time by itself cannot be
a ground to adopt different standard for judging his merit at different
points of time. Merit for any purpose and in particular for the purpose E
of admission in a professional college should be judged as far as
possible on the basis of same or similar examination. In Other words,
inter se merit amongst the students similarly situtated should be judged
applying the same norm or standard. Different types of examinations,
different sets of questions, different ways of evaluating the answer
books may yield different results in the case of the same student. F
Selection of students, however, by the minority institutions even
for the members of their community cannot be bereft of merit. Only
in a given situtation less meritorious candidates from the minority
community can be admitted vis-a-vis the general category; but therefor
the modality has to be worked out. For the said purpose de facto G
equality doctrine may be applied instead of de jure equality as every
kind of discrimination may not be violative of the equality clause,
(See Pradeep Jain v. Union of India, [I 984] 3 SCC 654.
Even applying the said tests, institutional reservation cannot be held to H
196 SUPREME COURT REPORTS [2003) SUPP. S S.C.R.
A be unconstitutional.
Mr. Nariman contended that provision for reservation being a suspect
legislation the strict scrutiny test should be applied. Even applying such a
test, we do not think that the institutional reservation should be done away
with having regard to the present day scenario. We may notice that such a
B test has been applied of upholding a statute recently in Bairam Kumawat v.
Union of India (2003) 7 SCC 626.
DR. AR. LAKSHMANAN, J. While concurring with the conclusion
arrived at the by Hon 'hie the Chief Justice, I would like to add the following
C few lines for streamlining the policies and processes for admission to Medical
Courses and other Professional Courses. The issues and options are discussed
below:
Every year during the admission season several lakhs of students undergo
immense suffering and harassment in seeking admission to Professional
Courses caused by uncertain policies, ambiguous procedures and inadequate
D information. The miseries of students and parents are escalating year after
year due to boundless expansion in the number of professional institutions
and their intake capacity, emergence of a large variety of newer disciplines
and mobility of students seeking admissions beyond the boundaries of States.
The students who are about to complete their high school education go through
E a period of acute anxiety caused by the uncertain situation about their chances
for further education. The number of qualified students wanting to go for
higher studies has been swelling largely motivated by hopes of better economic
security and partly be a desire to attain greater upward social mobility. Theri
begins their trauma due to many prevailing unfair practices in admissions and
devious ways of fee collections exploiting the anxiety of students and
F uncertainty of procedures. Most of the efforts to deal with these problems are
ad-hoc in nature often decided under judicial orders. Different State and
Central authorities take many different actions often leading to serve
inconsistencies. There is substantial scope for streamlining the admission
process, even within the regulatory powers of the authorities, provided these
G issues are not dealt with on an emergency basis during the admission season
but done in a co-ordinated and comprehensive manner ahead of time.
Issue Number One:
Entry Qualification:
H For admissions to under-graduate programmes, there are several different
S. CHAUDRI v. U.0.1. [LAKSHMANAN, J.) 197
eligibility nonns among the different categories of institutions and among the A
various State. Some are based on Twelfth Standard marks or grades only,
some are based on the Entrance Examination only, and some are detennined
by a combination of these with different weightages. There is endless number
of justifications for each of the above, confusing the students from different
parts of the country.
B
The preferred option, in my view, should be for a designated agency
or the University concerned to conduct the entrance examination for
professional as well as non-professional institutions in the specified subjects,
(an option suggested by this Court). The marks awarded in those subjects
should be the basis for detennining the merits of the students for admission C
to the institutions to which they apply.
ISSUE NUMBER TWO:
UNPLANNED GROWTH OF INSTITUTIONS:
The growth of the Professional Institutions has been at an geometrical D
rate during the least five years. During recent years the expansion of
educational facilities for higher education has been nearly exclusively in the
private unaided sector due to the financial incapacity of Governments .
. Those who have ventured to state the new institutions are motivated by E
commercial interests and not by educational and social interests. Political
considerations have become paramount in sanctioning of colleges. There has
been a high level of exploitation of students in certain disciplines through
unethical and illegal collection of unauthorized payments. The discontent
among the meritorious students is simmering also because only those, even
with poor competence, but who could pay high illegal amounts can get into F
many institutions.
OPTIONS:
I. The country needs to evolve urgently a predictable pattern of growth
for the Higher Education system in Technical, Managerial, and other G
Pr9fessional disciplines as well in Science and Humanities at least for the
next five years. The present level of ad-hoc approach and stampade should
be eliminated.
2. The national blue print and the road map for the development of H
198 SUPREME COURT REPORTS [2003] SUPP. 5 S.C.R.
A professional education should be based on maintaining credible level of quality
standards and anticipated' demand structure in economic and social sectors.
ISSUE NUMBER THREE:
FEE STRUCTURE:
B
This Court states: "A rational fee structure should be adopted by the
Management, which would not be entitled to charge a capitation lee.
Appropriate machinery can be devised by the State or University to ensure
that no capitation fee is charged and that there is no profiteering."
C OPTIONS:
One possible remedy is to make a rule under the Prevention of the
Capitation Fee Act that collecting any fee that was not previously announced
in the college publications and any fee collected without a formal receipt
should be punishable offences. This rule should be strictly enforced.
D
ISSUE NUMBER FOUR:
CERTIFICATES HASSLES:
When we consider the size of our country and the large number of
E institutions and huge volume of applicants, the man hour and money lost in
running around for getting the certificates during the admission season must
run into equivalent of several crores of rupees. A more hassle-free system for
authenticating the required information from students should be evolved.
OPTIONS:
F
Every student be provided with a basis identity certificate while he/she
is in the higher secondary stage (10th to 12th std.). This should provici;, all
essential information such as date of birth, community, domicile, photo identity
etc., authenticated by a designated official. This should be acceptable for
G admission requirements in any institution and in any State in India.
Superspeciality institutions and institutions where highly skilled Training/
Education is imparted:
On the issue whether there can be Article 15(4) reservations in super-
H speciality courses, this Court was categorical when it declared that there
S. CHAUDRI v. U.0.1. [LAKSHMANAN, J.] 199
could not be any reservation at the level of super-specialisation in medicine A
because any dilution of merit at the level would adversely effect the national
interest in having the best possible at the highest level of professional and
educational training. "
Similar view was already taken by this Court in Pradeep Jain v. Union
of India, AIR [1984] SC 1420. B
In similar vein, in Jagdish Saran v. Union of India, AIR [1980] SC
820, this Court observed that Merit must be the test when choosing the best
according to this rule ofequal marks. This proposition has greater importance
when we reach the higher levels of education for postgraduate courses. This C
Court further observed that the host of variables influence the qualification
of the reservation as one factor deserves great emphasis, the higher the level
of the speciality the lesser the role of reservation.
In the case of Article 15(4) reservations, this Court has made in clear
that the claims of national interest demands that these reservations can never D
exceed 50% of the available seats in the concerned educational institutions.
The view was approved by this Court in the case of Indra Sawhney v.
Union of India. If one looks at this issue in the light of the sprit of the ratios
laid down in Preeti Srivatsava v. State of MP., AIR [1999] SC 2894 and in
AIMS Students Union v. A.I.I.MS., AIR [2001] SC 3262, one would come to E
the inevitable conclusions that the constitutional reservations contemplated
under Article 15(4) should be kept at the minimal level so that national
interest in the achievement of the goal of excellence in all fields is not unduly
affected.
Of course, as between the reserved category candidates, there should be F
inter-se merit observed. This has been emphasised by this court in several
cases.
As regards the constitutional validity of jnstitutional/regional/university
wise reservation/preference, in view of this court's emphasis on the need to
strive for excellence which alone is in the national interest, it may not be G
possible to sustain its constitutional validity. However, the presently available
decisional law is in support of institutional preference to the extent of 50%
of the total available seats in the concerned educational institutions.
Conclusions:
H
200 SUPREME COURT REPORTS [2003) SUPP. 5 S.C.R.
A (1) in the case of Central educational institutions and other institutions
of excellence in the country the judicial thinking has veered around the
dominant idea of national interest with its limiting effect on the constitutional
prescription of reservations. The result is that in the case of these institutions
the scope for reservations is minimal.
B (2) As regards the feasibility of constitutional reservations at the level
of super-specialities, the position is that the judiciary has adopted the dominant
norm, i.e. "the higher the level of the speciality the lesser the role of
reservation". At the level of super-specialities the rule of "equal chance for
equal marks" dominates. This view equally applies to all super-speciality
C institutions.
(3) As regards the scope of reservation of seats in educational institutions
affiliated and recognised by State Universities, the constitutional prescription
of reservation of 50% of the available seats has to be respected and enforced.
D (4) The institutional preference should be limited to 50% and the rest
being left for open competition based purely on merits on an All India basis.
(5) As regards private non-minority educational institutions distinction
between government aided and unaided institutions. While government/State
can prescribe guidelines as to the process of selection and admission of
E students, the government/State while issuing guidelines has to take into
consideration the constitutional mandate -of the requirement of protective
discrimination in matters of reservation of seats as ordained by the decisional
law in the country. Accordingly, the extent of reservation in no case can
exceed 50% of the seats. The inter-se merit may be assessed on the basis of
a common All India Entrance Test or on the basis of marks at the level of
F qualifying examination.
(6) The position with respect to minority aided institutions is that they
are bound by the requirement of constitutional reservation along with other
regulatory contracts. However, the right to admit students of their choice
G being part of the right of religious and linguistic minorities, to establish and
administer educational institutions of their choice, the managements of these
educational institutions can reserve seats to a reasonable extent not necessarily
50% as laid down in Stephens College case. Out of the seats left after the
deduction of management quota, the State can require the observance of the
requirement of Constitutional reservation.
H
S. CHAUDRI v. U.0.l. [LAKSHMANAN, J.] 201
(7) As regards the unaided institutions, they have large measure of A
autonomy even in matters of admission of students as they are not bound by
the constraints of the demand of Article 29(2). Nor are they bound by the
constraints of the obligatory requirements of Constitutional reservation.
Before parting with this case, I am of the opinion that the younger
generation in our society nurturing fond hopes and aspiration for their future B
professional careers should feel it as a pleasurable experience to explore the
available options in higher education. They should be spared from the mental
torture due hassles and unsavoury experiences in getting to the first base. To
the extent possible they should be made to feel that they are part of one
nation. Tensions and frustrations at their impressionable age will surely result C
in a society with distorted and negative values damaging the foundations of
a healthy society. The policies and procedues for admissions should be viewed
from the-iarger impact on the future of India.
B.K.M. Petitions/Appeals disposed of.
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