Holding

The reservation rules for women in women’s colleges are constitutionally valid as a reasonable classification permissible under Article 15(3) and do not violate Articles 14 or 16.

Summary

The Punjab University Calendar contained Rules 5, 8 and 10 reserving certain posts in women’s colleges – principal, teacher and hostel superintendent – for women only. A writ petition challenged these provisions as violative of Articles 14, 15(3) and 16 of the Constitution. The Punjab and Haryana High Court held the rules unconstitutional, but the Supreme Court on appeal examined the doctrine of reasonable classification and the special provision power under Article 15(3). Relying on precedents such as St. Stephen's College, State of Jammu & Kashmir v. Triloki Nath and Air India v. Nergesh Meerza, the Court held that the classification was reasonable, had a nexus with the protective objective for young female students, and was permissible under Article 15(3). Consequently, the appeal was allowed, the High Court’s decision set aside, and the reservation rules were upheld.

Issues considered

Whether reservation of posts in women’s colleges for women only under Rules 5, 8 and 10 violates Article 14 of the Constitution.
Whether such reservation violates Article 16 concerning equality of opportunity in public employment.
Whether the State’s power under Article 15(3) permits special provisions for women in the said context.

Legislation cited

Constitution of Indias. Article 14, s. Article 15(3), s. Article 16

Subjects

reservationgender discriminationArticle 14Article 15(3)Article 16equal opportunitywomen's collegeaffirmative actionreasonable classificationpublic policy

Judgment

A VIJA Y LAKSHMI
v.
PUNJAB UNIVERSITY AND ORS.

SEPTEMBER 23, 2003

B [M.B. SHAH AND DR. AR. LAKSHMANAN, JJ.]

Constitution of India-Articles I 4, I 5(3) and I 6-Punjab University
Calendar, Volume III-Rules 5, 8 and JO-Reservation only for women
to be appointed as Principal, teacher and hostel superintendent in a
C women's college-Provisions challenged in writ petition-High Court held
them to be violative of Articles I 5 and I 6-0n appeal Held, classification
.
between male and female permissible for certain posts in accordance with
established propositions oflaw on the concept ofequality-State empowered
to take a policy decision and frame rules accordingly-Such reservation
D also permissible under Article I 5(3)-Court not to sit in appeal against
the policy decision of the State Government-Provisions not violative
of Articles I 4 or I 6 as classification is reasonable having nexus with
the object sought to be achieved, which is protection of young girl
students.

E Rules S, 8 and IO of the Punjab University Calender, Volume III
provide a reservation that only women may be appointed as Principal
of a women's college, teacher or hostel superintendent. A writ petition
was filed challenging the said provisions. The High Court, by majority,
held them to be violative of Articles IS and 16 of the Constitution.
F Hence this appeal.

Allowing the appeal, the Court

HELD: 1. Rules Sand 8 of Punjab University Calender Volume-
111 providing for appointment of lady principal in women's college or
-
G a lady teacher therein are not violative of either Article 14 or Article
16 of the Constitution, because classification is reasonable and it has
nexus with the object sought to be achieved. The State Government is
also empowered to make ~uch special provisions under Article 15(3)
of the Constitution, which is not restricted in any manner by Article
H t6.
1034
.
. ~
VIJA Y LAXMI v. PUNJAB UNIVERSITY 1035

2. In the light of the established propositions oflaw, on the concept A
of equality enshrined in the Constitution, classification between male
and female for certain posts are permissible. Rules providing
appointment of lady principal or teacher are also justified as separate
colleges or schools for girls are justifiable. The object sought to be
achieved is a precautionary, preventive and protective measure based B
on public morals and particularly in view of the young age of the girl
students to be taught. One may believe in absolute freedom, one may
not believe in such freedom but in such case when a policy decision is
taken by the State and rules are framed, accordingly, it cannot be
termed to be arbitrary or unjustified. Therefore, rules empowering the
authority to appoint only a lady Principal or a lady teacher or a woman C ·
superintendent cannot be violative of Article 14 or 16, moreso, when
such reservation by the State is permissible in exercise of powers
conferred under Article 15(3) of the Constitution. (1038-8-E]

St. Stephen's College v. University of Delhi, (1992] 1 SCC 559, D
followed.

3. It is not for the Court to sit in appeal against the policy decision
taken by State Government. It is for the State to decide whether such
rule is a preventive or precautionary measure so that young fallible
students may not be subjected to any sort of exploitation. ( 1039-B, CJ E

State of Jammu & Kashmir v. Triloki Nath, (1974] 1 SCC 19; Air
India v. Nergesh Meerza and Others, (1981] 4 SCC 335; Western U.P.
Electric Power & Supply Co. Ltd. v. State of U.P., (1969] 1 SCC 817;
Yusuf Abdul Aziz v. The State of Bombay and Husseinbhoy Laljee, (1954]
SCR 930; Union of India v. K.P. Prabhakaran, (1997] 11 sec 638; F
Government of A.P. v. P.B. Vijay Kumar, (1995] 4 SCC 520; Toguru
Sudhakar Reddy and Another v. Government of A.P. and Others, (1993]
Supp. 4SCC 439andMR. Balajiv.StateofMysore, (1963) Supp.1 SCR
439, relied on.
G
Dattatraya Motiram More v. State of Bombay, AIR (1953) Bombay
311 and B.~. Acharya & Anr. v. State ofGujarat & Anr., (1988) Lab. J.C.
1465, approved.

CIVIL APPELLATE JURISDICTION: Civil Appeal No. 13393 of
1~ H
1036 SUPREME COURT REPORTS [2003] SUPP. 3 S.C.R.

A From the Judgment and Order dated 16.5.69 of the Punjab and
Haryana High Court in C.W.P. No. 11694 of 1994.

Ms. Rani Chhabra, Ms. Seema Nair and Ms. Sudha Pal for the
Appellant.

B Ms. Kamini Jaiswal and Ms. Shomila Bakshi for the Respondent
No. 3.

K.G. Bhagat, Vineet Bhagat, Debasis Misra, Kamat Baid and
Ms. Dipali Chauhan for the Respondent No. 4.
c
The Judgment of the Court was delivered by :

SHAH, J.: Preference given to a woman for being appointed as a
Principal of the Government College for Girls is held to be violative of
D Articles 14, 15 and 16 of the Constitution of India.-On the face of it, it
appears that such reservation in favour of a Woman for being appointed
as Principal of exclusive Girls College cannot be held to be violative of
right to equality.

However, this question is required to be decided in view of the
E judgment rendered by the High Court of Punjab and Haryana in Writ
Petition No.11694 of 1994 holding that Rules providing reservation/
preference in favour of a woman is violative of Articles 15 and 16 of the
Constitution. That judgment is challenged by filing this appeal.

F For this purpose, the High Court interpreted Rules 5, 8 and IO of the
Punjab University Calendar Volume-III, which are as under:-

"Rule 5. The Principal of a women's college shall be lady who
shall possess at least Master's Degree in 1st or 2nd Class or an
equivalent degree with experience of teaching in a college. This
G rule shall not apply to Women's colleges whose men or women
Principals have already been approved. Provided that on their
retirement, a qualified lady Principal shall be appointed.

Rule 8. As far as possible, ladies shall be appoinJed as teachers.
H In case a qualified lady teacher in a particular subject is not
VIJAY LAXMI v. PUNJAB UNIVERSITY [SHAH, J.] 1037
--.
available, the college authorities may appoint a man teacher with A
the prior approval of the Vice Chancellor. A man teacher so
appointed shall not be confirmed by the management in his post
and he shall be replaced as soon as a suitable qualified lady
teacher is available.
B
Rule JO. The College shall have a hostel in or near the premises
of the college. It shall be under the charge of a whole time
Woman Superintendent. There shall a part time or whole time
women Medical Officer."

For deciding the issue, we would refer to established propositions of C
law interpreting Articles 14 to 16, which are:-

Article I 4 does not bar rational classification;

Reasonable discrimination between female and male for an D
object sought to be achieved is permissible;

Question of unequal treatment does not arise if there are
. different sets of circumstances;
E
Equality of opportunity for unequals can only mean
aggravation of inequality;

Equality of opportunity admits discrimination, with reasons
and prohibits discrimination without reason.- Discrimination
with reasons means rational classification for differential F
treatment having nexus with constitutionally permissible
objects.- It is now an accepted jurisprudence and practice
that the concept of equality before the law and the prohibition
of certain kinds of discrimination do not require identical
treatment. The equality means the relative equality, namely G
the principle to treat equally what are equal and unequally
what are unequal. To treat unequals differently according
to their inequality is not only permitted but required. (Re:
St. Stephen's College v. University of Delhi, [1992)1 SCC
559). H
1038 SUPREME COURT REPORTS (2003) SUPP. 3 S.C.R.
,.,.
A Sex is a sound basis for classification.
'
Article 15 (3) categorically empowers the State to make
special provision for women and children;

Articles 14, 15 and 16 are to be read conjointly.
B
In the light of the aforesaid principles, on the concept of equality
enshrined in the Constitution, it can be stated that there could be classification
between male and female for certain posts. Such classification cannot be
said to be arbitrary or unjustified. If separate colleges or schools for girls
c are justifiable, rules providing appointment of lady principal or teacher
would also be justified. The object sought to be achieved is a precautionary,
preventive and protective measure based on public morals and particularly
in view of the young age of the girl students to be taught. One may believe
in absolute freedom, one may not believe in such freedom but in such case
D when a policy decision is taken by the State and rules are framed
accordingly, it cannot be termed to be arbitrary or unjustified. Hence, it
would be difficult to hold that rules empowering the authority to appoint
only a lady Principal or a lady teacher or a lady doctor or a woman
Superintendent are violative of Articles 14 or 16 of the Constitution.
...
E Secondly, such reservation by the State is permissible in exercise of
powers conferred under Article 15(3), which provides thus:-

"15. Prohibition of discrimination on grounds of religion, race,
caste, sex or place of birth.- (3) Nothing in this article shall
F prevent the State from making any special provision for women
and children."

POLICY DECISION OF RESERVATION FOR FEMALES AND RIGHT

-
TO EQU4l/TY:
G In the judgment per majority, the High Court after considering the
duties which are required to be performed by the Principal of School
observed thus:-

"Keeping in view the nature of the duties which are required
H to be performed by the Principal in relation to the girl students
VIJA Y LAXMI v. PUNJAB UNIVERSITY [SHAH, J.] 1039

it cannot be deduced that such students could be subjected to any A
sort of exploitation. For dealing with the students, the Head of
the Department has equal and similar powers as are conferred
upon the Principal, which if misused may result in disastrous
consequences."

It is difficult to agree to the aforesaid reasoning because as stated
B
above, it is not for the Court to sit in appeal against the policy decision
taken by the State Government. It is for the State to decide whether such
rule is a preventive or precautionary measure so that young fallible students
may not be subjected to any sort of exploitation.
c
a) For the policy decision of classification, we would straightway
refer to the decision rendered by this Court in State ofJammu & Kashmir
v. Triloki Nath Khosa, (1974] I SCC 19, wherein the Court [Chandrachud,
J. (as he then was)] (in para 20) succinctly held thus:-

" ... The challenge, at best, reflects the respondent's opinion D
on promotional opportunities in public services and one may
assume that if the roles were reversed, respondents would be
interested in implementing their point of view. But we cannot sit
in appeal over the legislative judgment with a view to finding out
whether on a comparative evaluation ofrival theories touching the E
question of promotion, the theory advocated by the respondents
is not to be preferred. Classification is primarily for the legislature
or for the statutory authority charged with the duty of framing the
terms and conditions of service; and if, looked at from the
standpoint of the authority making it, the classification is found F
to rest on a reasonable basis, it has to be upheld"

It was also observed that discrimination is the essence of classification
and does violence to the constitutional guarantee of equality only if it rests
on an unreasonable basis and it was for the respondents to establish that
classification was unreasonable and bears no rational nexus with its G
purported object. Further, dealing with the right to equality, the Court (in
paras 29 & 30) held thus:-

"But the concept of equality has an inherent limitation
arising from the very nature of the constitutional guarantee. H
1040 SUPREME COURT REPORTS [2003] SUPP. 3 S.C.R.

A Equality is for equals. That is to say that those who are similarly
circumstanced are entitled to an equal treatment.

Since the constitutional code of equality and equal opportunity
is a charter for equals, equality of opportunity in matters of
promotion means an equal promotional opportunity for persons
B who fall, substantially, within the same class."

b) Now, we would next refer to the decision in Air India v. Nergesh
Meerza and Others, [1981] 4 SCC 335, which propounds the right of
equality under Article 14 after considering various decisions. In that case,
C constitutional validity of Regulation 46(i)(c) of Air India Employees'
Service Regulations was challenged, which provides for retiring age of an
Air-Hostess. The Court (in paragraph 39) summarized thus:-

"Thus, from a detailed analysis and close examination of the
cases of this Court starting from 1952 till today, the following
D propositions emerge:

(1) In considering the fundamental right of equality of
opportunity a technical, pedantic or doctrinaire approach
should not be made and the doctrine should not be invoked
even if different scales of pay, service terms, leave, etc., are
E
introduced in different or dissimilar posts.

Thus, where the class or categories of service are essential
different in purport and spirit, Article 14 cannot be attracted.

F (2) Article 14 forbids, hostile discrimination but not reasonable
classification. Thus, where persons belonging to a particular
class in view of their special attributes, qualities, mode of
recruitment and the like, are differently treated in public
interest to advance and boost members belonging to backward
classes, such a classification would not amount to
G
discrimination having a close nexus with the objects sought
to be achieved so that in such cases Article 14 will be
completely out of the way.

(3) Article 14 certainly applies where equals are treated
H differently without any reasonable basis.

I
VIJAY LAXMI v. PUNJAB UNIVERSITY [SHAH, J.] 1041

(4) Where equals and unequals are treated differently, Article A
14 would have no application.

(5) Even ifthere be one class of service having several categories
with different attributes and incidents, such a category
becomes a separate class by itself and no different or B
discrimination between such category and the general
members of the other class would amount to any
discrimination or to denial of equality of opportunity.
-~

( 6) In order to judge whether a separate category has been
carved out of a class of service, the following circumstances C
have generally .to be examined:

(a) the nature, the mode and the manner of recruitment of
a particular category from the very start,

(b) the classifications of the particular category, D
(c) the terms and conditions of service of the members of
the category,

(d) the nature and character of the posts and promotional E
avenues,

(e) the special attributes that the particular category possess
which are not be found in other classes, and the like."

Apart from various other decisions, the Court referred to Western F
U.P. Electric Power & Supply Co. Ltd. v. State of U.P., [1969] l SCC 817
wherein this Court held thus:-

"Article 14 of the Constitution ensures equality among
equals : its aim is to protect persons similarly placed against
discrimination treatment. It does not however operate against G
rational classification. A person setting up a grievance of denial
of equal treatment by law must establish that between persons
similarly circumstanced, some were treated to their prejudice and
the differential treatment had no reasonable relation to the object
sought to be achieved by the law." H
1042 SUPREME COURT REPORTS [2003) SUPP. 3 S.C.R.

A DECISIONS DEALING WITH SIMILAR SPECIAL PROV1SIONS FOR
WOMEN.

a) Under Section 497 of the Indian Penal Code, the offence of
adultery can only be committed by a man and wife/woman is not
B punishable as abettor. It was contended that the said Section was violative
of Articles 14 and 15 of the Constitution. This Court negatived the said
contention in Yusuf Abdul Aziz v. The State of Bombay and Husseinbhoy
Laljee, [1954) SCR 930 and referred to Article 15(3) which provides that
nothing in the Article shall prevent the State from making special
provisions for women and held thus:-
c
"It was argued that clause (3) should be confined to provisions
which are beneficial to women and cannot be used to give them
a licence to commit and abet crimes. We are unable to read any
such restriction into the clause; nor are we able to agree that a
D provision which prohibits punishment is tantamount to a licence
to commit the offence of which punishment has been prohibited.

Article 14 is general and must be read with the other
provisions, which set out the ambit of fundamental rights. Sex is
a sound classification and although there can be no discrimination
E in general on that ground, the Constitution itself provides for
special provisions in the case of women and children. The two
articles read together validate the impugned clause in section 4 97
of the Indian Penal Code."

b) In Dattatraya Motiram More v. State of Bombay, AIR (1953)
F
Bombay 311 provisions of the Bombay Municipal Boroughs Act, 1925
which reserved seats for women in the election were challenged on the
ground that they offended Articles 14, 15 and 16 of the Constitution. That
contention was negatived by the Court and explaining the scope of Article
15, the Court [Chagla, C.J.] observed that it must always be borne in mind
G that the discrimination which is not permissible under Art. 15(1) is a
discrimination which is only on one of the grounds mentioned in Art. 15(1 ).
If there is a discrimination in favour of a particular sex, that discrimination
would be permissible provided it is not only on the ground of sex, or, in
other words, the classification on the ground of sex is permissible provided
H that classification is the result of other considerations besides the fact that
VIJA Y LAXMI v. PUNJAB UNIVERSITY [SHAH, J.] I 043

the persons belonging to that class are of a particular sex. The Court further A
held thus:-

Article 15(3) is obviously a proviso to Article 15(1)
and proper effect must be given to the proviso. It is true that in
construing a proviso one must not nullify the section itself. A B
proviso merely carves out something from the section itself, but
it does not and cannot destroy the whole section. The proper way
to construe Article 15(3), in our opinion, is that whereas under
Article 15(1) discrimination in favour of men only on the ground
of sex is not permissible, by reason of Article 15(3) discrimination
in favour of women is permissible, and when the State does C
discriminate in favour of women, it does not offend against Article
15(1). Therefore, as a result of the joint operation of Art. 15(1)
and Art. 15(3) the State may discriminate in favour of women
against men, but it may not discriminate in favour of men against
women ... " D
c) Dealing with the similar contentions, in B.R. Acharya & Another
v. State of Gujarat & Another, (1988) Lab. l.C. 1465, the learned Single
Judge of the Gujarat High Court [R.C. Mankad, J.] observed thus:-

"It is clear from the affidavit in reply filed on behalf of the E
respondent State that there are certain posts which are meant only
for lady officers. The institutions, where destitute women,
unmarried mothers, etc. are kept, are headed by lady superintendent.
Since the post is of lady superintendent, only lady officers are
considered eligible for such posts. The petitioners, however, F
contend that they should not be discriminated only on the ground
of sex. They should also be considered eligible for promotion to
such post. This claim made by the petitioners cannot be accepted.

The institutions which are headed by Lady Superintendents
are exclusively for women, and it is for the Government to decide G
as a matter of policy whether or not such institutions should be
headed by only lady officers. Merely because at some stage there
is a common cadre in which the officers of both the sexes are
appointed, does not mean that all posts in the higher cadre must
also be filled in by persons belonging to both the sexes. Having H
1044 SUPREME COURT REPORTS [2003] SUPP. 3 S.C.R.

A regard to the nature of duties to be performed, it is open to the
State Government to decide that the institutions which are
exclusively meant for women should be headed by only women
or lady officers. The Government cannot be compelled to appoint
male officers to head such institutions, if it does not consider it
advisable to do so. If a special provision is made for women, the
B
petitioners cannot made grievance that they have been discriminated
against. Incidentally it may be pointed out that Article 15 of the
Constitution of India prohibits discrimination on grounds of
religion, race, caste, sex or place of birth. Clause (3) of the said
Article however, provides "Nothing in this article shall prevent the
c State from making any special provision for women and children."
I, therefore, do not find any substance in the petitioners' contention
that they should be considered to be eligible for promotion to the
post of Lady Superintendent."

D d) In Union of India v. K.P. Prabhakaran, [1997] 11 sec 638, this
Court held that the circular providing appointment on the post of lnquiry-
cum-Reservation Clerks in four metropolitan cities of Madras, Bombay,
Calcutta and Delhi to be manned only by women was not violative of
Articles 14 or 16 of the Constitution.

E e) Further, in Government of A.P. V. P.B. Vijaykumar, (1995] 4 sec
520 the Court dealt with the similar question regarding validity of Rule
22(a) of the Andhra Pradesh State and Subordinate Service Rules providing
reservation to the extent of 30% for women in the matter of direct
recruitment to the post governed by the said Rules. The Andhra Pradesh
F High Court declared the said Rules to be invalid. This Court while
reversing the decision of the High Court held thus:-

"... Article 15 deals with every kind of State action in
relation to the citizen of this country and every sphere of the
activity of the State is controlled by Article 15(1) and, therefore,
G there was no reason to exclude from the ambit of Article 15(1)
employment under the State. At the same time Article 15(3)
permits special provisions for women. Both Articles 15(1) and
15(3) go together ...... This power conferred by Article 15(3) is
wide enough to cover the entire range of State activity including
H employment under the State.
VIJA Y LAXMI v. PUNJAB UNIVERSITY [SHAH, J.] 1045

This Court further held thus:- A
An important limb of this concept of gender equality is
creating job opportunities for women. To say that under Article
15(3 ), job opportunities for women cannot be created would be
to cut at the very root of the underlying inspiration behind this B
article. Making special provisions for women in respect of
employment or posts under the State is an integral part of Article
15(3). This power conferred under Article 15(3), is not whittled
down in any manner by Article 16."

f) Further, this Court in Toguru Sudhakar Reddy and Anr. v. C
Government of A.P. and Ors., [1993] Supp. 4 SCC 439 approved the
reasoning of the High Court of Andhra Pradesh wherein it was held that
reservation beyond 50% for the women was pennissible under Article
15(3) of the Constitution and that ratio in MR. Balaji. v. State of Mysore,
[1963] Supp. 1 SCR 439 was only confined to the reservation under D
Articles 15(4) and 16(4) of the Constitution of India.

RESULT:
_,..
In view of the .aforesaid established law interpreting Articles 14 to
16, Rules 5 and 8 of Punjab University Calendar Volume - III providing E
for appointment of lady principal in Women's College or a lady teacher
therein cannot be held to be violative either of Article 14 or Article 16 of
the Constitution, because classification is reasonable and it has.a nexus with
the object sought to be achieved. Jn addition, the State Government is
empowered to make such special provisions under Article 15 (3) of the F
Constitution. This power is not restricted in any manner by Article 16.

In the result, appeal is allowed. The impugned judgment rendered
by the majority striking down the Rules 5, 8 & 10 of the Punjab University
Calendar Volume-III as violative of Articles 14 or 16 is set aside. Minority G
view holding that the said Rules are not violative of Articles 14 or 16 is
upheld. There shall be no order as to costs.

A.Q. Appeal allowed.