Source: https://www.legalcrystal.com/case/643314/state-madhya-pradesh-vs-kumari-nivedita
Timestamp: 2019-04-23 10:30:00+00:00

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Judge Y.V. Chandrachud, C.J.,; A. Varadarajan and; Amarendra Nath Sen, JJ.
Appellant State of Madhya Pradesh and anr.
Respondent Kumari Nivedita JaIn and ors.
1. The validity of the executive order dated 9th September, 1980 passed by the State Government completely relaxing the conditions relating to the minimum qualifying marks for selection of students to Medical Colleges of the State in respect of candidates belonging to Scheduled Castes and Scheduled Tribes categories forms the subject matter of these appeals by Special Leave.
The Government has taken a decision that the candidates belonging to the Scheduled Castes and Scheduled Tribes be admitted to the Medical Colleges in the seats reserved for them in accordance with the merit to be determined on the basis of the marks obtained by them in the Pre-Medical Examination and that for this purpose, the condition relating to the obtaining of minimum qualifying marks be removed.
3. Kumari Nivedita Jain, as we have earlier noticed, was a candidate for admission into a Medical College in the general seats, that is, the seats which have not been otherwise reserved. Though she had obtained necessary qualifying marks, she could not secure her admission, as other candidates for the general seats had obtained marks higher than she had obtained in the Pre-Medical Examination, for filling up the vacancies available in the general category. It may be noted that Rule 9 contains a provision to the effect that in case seats of reserved categories of Scheduled Castes and Scheduled Tribes remain vacant, these seats will be filled up by the candidates available on the combined merit list. If the seats in the reserved categories had been thrown open to candidates in the general category on account of the failure on the part of the candidates belonging to the categories of Scheduled Castes and Scheduled Tribes to obtain minimum qualifying marks, Nivedita Jain would have been in a position to secure her admission to the medical college. As the State Government by its order dated 9th September, 1980 decided to relax completely the conditions relating to minimum qualifying marks for these two categories of Scheduled Castes and Scheduled Tribes candidates instead of filling up these seats by candidates available on the combined merit list, she was deprived of the opportunity of getting her admission into the medical college. She, therefore, filed this writ petition in the High Court of Madhya Pradesh challenging the validity of the said order of the State Government dated 9th September, 1980. It will be noticed that this order of the State Government is also an executive order.
4. The principal grounds on which the validity of the order has been challenged by Nivedita Jain, the respondent herein and the petitioner in the writ petition before the High Court, are-(1) that the order of the Government contravenes Regulation II of the Medical Council of India and would hit Section 19 of the Indian Medical Council Act, 1956, exposing the medical colleges to the risk of being derecognised; and (2) that the order of the Government will have the effect of allowing less qualified and less deserving candidates to fill up the seats and would, therefore, destroy equality and violate Articles 14 and 15 of the Constitution.
5. It appears from the judgment of the High Court that another ground, namely, that the order dated 9th September, 1980 was violative of Ordinance 94 of the University of Jabalpur, was also urged before the High Court, though this ground does not appear to have been taken in the petition.
As the Ordinance has to be read alongwith the regulations and can be given effect to only in so far it is consistent with the regulations, it cannot constitute a new ground for invalidating the impugned order, We would, however, like to emphasise again that when a common entrance test for selection of candidates is held by the Government for all the medical colleges, it is very necessary that the Universities must prescribe identical conditions for admission consistent with the Regulations made by the Medical Council to avoid any confusion in the matter of admission.
7. In the result, the High Court allowed the writ petition and struck down the order of the State Government dated 9th September, 1980.
8. In this appeal by special leave, the State of Madhya Pradesh and the Controller of Examinations of pre-medical test have challenged the correctness of the decision of the High Court.
9. Before we proceed to consider the various arguments advanced on behalf of the parties, we may here note that in the writ petition filed by Nivedita Jain, she also challenged the validity of the reservation made by the State Government of 3% of the seats for the children and grand children of freedom-fighters by another order passed by the State Government on the 19th September, 1980. The validity of this order was, however, upheld by the High Court. The matter rests there and in this appeal we are not concerned with this aspect of the matter.
Objection to the objective test and the viva voce examination is based on the ground that they fall outside the scheme envisaged by the Regulations made by the Indian Medical Council for admission to the M.B.B.S, Course. The respondents, however, question the validity of the Regulations. We are then referred by the petitioner to Clauses (i) and (1) of Section 33, Indian Medical Council Act, 1956, in support of the contention that the power of the Council to make regulations extends to making regulations prescribing the examinations and tests for admission. It seems to us prima facie that those provisions do not authorise the Council to do so. But we refrain from expressing any final opinion in the matter as the Council is not a party before us.
Mr. Phadke has argued that item 66 in List I of the Seventh Schedule to the Constitution does not stand in the way of the State Government to frame rules for admission to Medical Colleges in view of item 25 included in List III of the said Schedule. It is the argument of Mr. Phadke that item 66 in List I which provides for 'co-ordination and determination of standards in institutions for higher education or research and scientific and technical institutions', is not intended to deal with the question of selection of candidates and item 25 in List III which provides for 'education including technical education, medical education in universities subject to provisions of entries 63, 64, 65 and 66 of List I; vocational and technical training of labour', is broad enough to include all matters relating to education subject to the provisions of entries 63, 64, 65 and 66 of List I and empowers the State to frame rules relating to selection of candidates for admission. Mr. Phadke has submitted that the Council must have been aware of the limitations of its power in the matter of selection of candidates for admission; and, the Council has, therefore, made only a recommendation in this regard and has not made any mandatory provision about it. In this connection Mr. Phadke has referred to the language used in Regulation II and has contrasted the same with the language used in Regulation I of the Regulations. Mr. Phadke submits that as Regulation II is only in the nature of a recommendation and direcrory, any rules framed by the State Government regarding selection of candidates in contravention of the said recommendation cannot be held to be invalid and illegal and cannot be struck down on that ground. Mr. Phadke has also argued that there is no question of violation of Article 15(1) and (2) of the Constitution. It is his argument that in view of the provisions in Article 15(4) of Constitution, the State Government is competent to make special provisions for the advancement of socially and educationally backward classes or for the Scheduled Castes and Scheduled Tribes. Mr. Phadke in this connection has referred to the case of Jagdish Saran and Ors. v. Union of India and Ors. : 2SCR831 . Mr. Phadke has commented that the view expressed by the High Court that the order which violates the statutory regulation of the Council must be held to be violative of Article 15(1) and (2) and not protected by Article 15(4) must necessarily be held to be erroneous, as Regulation II is not mandatory and has no binding effect.
11. Regarding violation of Ordinance 54 of Jabalpur University, Mr. Phadke submits that no such ground has been taken in the petition and further the affidavit filed on behalf of the university shows that the Ordinance has not become effective.
The Indian Medical Council Act, 1956 has constituted the Medical Council of India as an expert body to control the minimum standards of medical education and to regulate their observance. Obviously, this high-powered Council has power to prescribe the minimum standards of medical education. It has implicit power to supervise the qualifications or eligibility standards for admission into medical institutions. Thus there is an overall invigilation by the Medical Council to prevent sub-standard entrance qualifications for medical courses.
13. Mr. Kacker submits that in the instant case there is no dispute that the order of the Government dated 9th September 1980 in question clearly contravenes Regulation II of the Council. Mr. Kacker has also drawn our attention to entry 66 of the Union List which has been set out earlier. Mr. Kacker has contended that the State Government by an executive order cannot over-ride Regulation II of the Council which has statutory force of a Parliamentary Legislation, particularly, when the said provisions are in a field occupied by the Union List. Mr. Kacker has next contended that complete relaxation of the conditions in relation to qualifying marks for admission into Medical Colleges in case of Scheduled Castes and Scheduled Tribes candidates purported to have been made by the State Government by the impugned order dated 9th September, 1980 must also be held to be unconstitutional as the said order is clearly violative of Article 15(1) and (2) of the Constitution and cannot be said to be protected by Article 15(4). In support of this submission Mr. Kacker has relied on the decision of the Full Bench of the Patna High Court in the case of Amalendu Kumar v. State of Bihar AIR 1980 Pat 1. In this case the Patna High Court held that where the State Government reduces the percentage of marks, marks prescribed for the Scheduled Castes and Scheduled Tribes for passing competitive examination held for the purpose of admission to medical college, by executive fiat, first from 45% to 40% and subsequently to 35% on the ground that seats reserved for the Scheduled Castes and Tribes would remain unfilled, both reductions were invalid as violative of guarantee given under Article 15(1).
14. Mr. Kacker has finally submitted that the order in question is also liable to be struck down as the order is violative of Ordinance 54 of University of Jabalpur.
15. In concluding Mr. Kacker has appealed to this Court that irrespective of the result of this appeal, the respondent Nivedita Jain who has already been admitted into a College on the basis of interim order passed by this Court in this appeal for prosecuting her studies in the Medical College, should be allowed to continue her studies and the fate of this appeal should not interfere with her studies and with her career.
(1) The Council may prescribe the minimum standards of medical education required for granting recognised medical qualifications (other than post-graduate medical qualifications) by Universities or medical institutions in India.
(n) any matter for which under this Act provision may be made by regulations.
Section 34 of the Act which happens to be the last section repeals the earlier Indian Medical Council Act of 1933, providing for the usual saving clause.
17. An analysis of the various sections of the Act indicate that the main purpose of the Act is to establish Medical Council of India, to provide for its constitution, composition and its functions; and the main function of the Council is to maintain the medical register of India and to maintain a proper standard of medical education and medical ethics and professional conduct for medical practitioners. The scheme of the Act appears to be that the Medical Council of India is to be set up in the manner provided in the Act and the Medical Council will maintain a proper medical register, will prescribe minimum standards of medical education required for granting recognised medical qualifications, will also prescribe standards of post-graduate medical education and will further regulate the standards of professional conduct and etiquette and code of ethics for medical practitioners. The Act further envisages that if it appears to the Council that the courses of study and examination to be undergone in, or the proficiency required from candidates at any examination held by any University or Medical Institution do not conform to the standard prescribed the Council or that the staff, equipment, accommodation, training and other facilities for instructions and training provided in such University or medical institution or in any college or other institution affiliates to the University do not conform to the standards prescribed by the Council, the Council will make a representation to that effect to the Central Government and on consideration of the representation made by the Council, the Central Government may take action in terms of the provisions contained in Section 19 of the Act. The Act also empowers the Council to take various measures to enable the Council to judge whether proper medical standard is being maintained in any particular institution or not.
18. Now coming to the consideration of the question involved in this appeal, it appears from the provisions of the Act that the authority of the Council extends to the sphere of maintaining proper medical standards in medical colleges or institutions necessary for obtaining recognised medical qualifications. By virtue of this authority it may be open to the Council to lay down the minimum educational qualifications required of a student who may seek admission into a medical college. In other words, the eligibility of a candidate who may seek to get admitted into a medical college for obtaining recognised medical qualifications may be prescribed by the Council. All the candidates who are eligible for admission into Medical Colleges or Institution for getting themselves qualified as medical practitioners are entitled to seek admission into a Medical College or Institution. As to how the selection has to be made out of the eligible candidates for admission into the Medical College is a matter which has necessarily to depend on circumstances and conditions prevailing in particular States. Though the question of eligibility for admission into the medical curriculum may come within the power and jurisdiction of the Council, the question of selection of candidates out of the candidates eligible to undergo the medical course does not appear to come within the purview of the Council. The observations of the Supreme Court in the case of State of Kerala v. Kumari T.P. Roshana and Ors. (supra) quoted earlier relate to the question of qualification or eligibility of students for admission into a medical college and the said observations are not intended to apply to a case of selection of students for admission into a Medical College out of the eligible candidates. As the number of candidates seeking admission to Medical Colleges largely exceed the number of vacancies available to such candidates for admission, some kind of procedure has to be evolved for such selection. The process of selection of candidates for admission to a medical college out of the candidates eligible for admission for filling up the limited vacancies has no real bearing on the question of eligibility or qualification for admission or on the standard of medical education. The standard of medical education really comes into the picture in the course of studies in the medical colleges or institutions after the selection and admission of candidates into medical colleges and institutions. Students who satisfy the requirements of Regulation I become qualified or eligible to seek admission into the Medical Course. Regulation I requisites requisities which have to be satisfied to enable every student to become eligible or qualified to seek admission and the process of selection comes thereafter.
19. Undoubtedly, under Section 33 of the Act, the Council is empowered to make regulations with the previous sanction of the Central Government generally to carry out the purposes of the Act and such regulations may also provide for any of the matters mentioned in Section 33 of the Act. We have earlier indicated what are the purposes of this Act. Sub-sections (j), (k), (l) and (m) of the Act which we have earlier set out clearly indicate that they have no application to the process of selection of a student out of the eligible candidates for admission into the medical course. Sub-section (j), (k), and (l) relate to post admission stages and the period of study after admission in medical colleges. Sub-section (m) of Section 33 relates to a post-degree stage Sub-section (n) of Section 33 which has also been quoted earlier is also of no assistance as the Act is not concerned with the question of selection of students out of the eligible candidates for admission into medical colleges. It appears to us that the observations of this Court in the case of Arti Sapru v. State of Jammu and Kashmir and Ors. (supra) which we have earlier quoted and which were relied on by Mr. Phadke, were made on such consideration, though the question was not very properly finally decided in the absence of the Council.
(i) he has completed the age of 17 years at the time of admission or will complete the age on or before 31st December of the year of his admission to the Ist M.B.B.S. Courses. Provided that the candidates who are admitted directly to the 5-1/2 years integrated M.B.B.S. course should have completed the age of 16 years at the time of admission or will complete this age on 31st December of the year of admission to the pre-medical course.
(c) the first year of the three years degree course of a recognised university, with physics, chemistry and biology, including a practical test in these subjects provided the examination is a 'University Examination'.
(d) B.Sc. examination of an Indian University. Provided that he has passed the B. Sc examination with not less than two of the following subjects-Physics, Chemistry, Biology (Botany, Zoology ; and further that he has passed the earlier qualifying examination with the following subjects, Physics, Chemistry, Biology and English.
Note: A student who has passed the B. Sc. examination with one or more of the subjects mentioned earlier would be admitted to the Medical Course if he had passed the remaining subjects of the Medical group (Physics, Chemistry and Biology) in the pre-professional/ intermediate examination.
(e) The Higher Secondary Examination or the Indian School Certificate Examination which is equivalent to 10+2 Higher Secondary Examination after a period of 12 years study, the last two years of study comprising of Physics, Chemistry, Biology and mathematics or any other elective subject with English at a level not less than the Core Course for English as prescribed by the National Council for Education Research and Training, after the introduction of 10+2+3 years educational structure as recommended by the National Committee on Education.
(f) any other examination which, in scope and standard, is found to be equivalent to the intermediate science examination of an Indian University-Board, taking physics, chemistry and biology, including a practical test in each of these subjects and English.
Note: (a) The pre-medical course may be conducted either at Medical College or a Science College.
(b) After the 10+2 course is introduced, the integrated course should be abolished.
(a) In States, having only one Medical College and one University/Board/Examining body conducting the qualifying examination, the marks obtained at such qualifying examination be taken into consideration.
(b) In States laving more than one University/Board/ Examining Body conducting the qualifying examination (or where there are more than one medical college under the administrative control of one authority), a competitive entrance examination should be held so as to achieve a uniform evaluation due to the variation of the standard of qualifying examinations conducted by different agencies.
(c) Where there are more than one university/board conducting the qualifying examination then a joint selection board be constituted for all the colleges.
(d) A competitive entrance examination is absolutely necessary in the case of institutions of All India character.
21. Provided that a candidate who has appeared in a qualifying examination the result of which has not been declared, may be provisionally allowed to take up the competitive examination and in case of his selection for admission to a medical college, he shall not be admitted thereto unless in the meanwhile he has passed the qualifying examination.
22. Provided also that a candidate for admission to the medical course must have obtained not less than 50% of the total marks in English and Science subjects taken together (i) at the qualifying examination (or at a higher examination) in the case of medical college where the admissions are made on the basis of marks obtained at these examinations or (ii) 50% of the total marks in English and Science subjects taken together at the competitive entrance examination where such examinations are held for selection.
23. Provided further that in respect of candidates belonging to Scheduled Castes/Scheduled Tribes the minimum marks required for admission shall be 40% in lieu of 50% for general candidates.
24. Where the seats reserved for Scheduled Castes and Scheduled Tribes students in any State cannot be filled for want of requisite number of candidates fulfilling the minimum requirements prescribed from that State then such vacant seats may be filled up on all India basis with Scheduled Castes and Scheduled Tribes candidates getting not less than the minimum prescribed pass percentage or reverted to general category.
25. The authorities (State Government and Universities) should arrange special coaching classes for Scheduled Castes/Scheduled Tribes candidates before the qualifying/ competitive examination to enable them to come up to the appropriate standard for admission to the Medical Courses.
Regulation I prescribes the eligibility of a candidate for admission to medical courses. For maintaining proper standards in medical colleges and institutions it comes within the competence of the Council to prescribe the necessary qualification of the candidates who make seek admission into the Medical Colleges. As this Regulation is within the competence of the Council, the Council has framed this Regulation in a manner which leaves no doubt that this Regulation is mandatory. The language of this Regulation, which starts with the words 'no candidate shall be allowed to be admitted to the medical curriculum until...', makes this position absolutely clear. On the other hand the language in Regulation II which relates to selection of candidates clearly goes to indicate that the Council itself appears to have been aware of the limitation on its powers to frame any such regulation regarding the procedure or process of selection of candidates for admission to the Medical Course out of the candidates qualified or eligible to seek such admission. As, however, the question of selection of candidates for admission into medical colleges out of the eligible candidates is a problem more or less common to all the States, the Council might have considered it desirable to recommend certain guidelines which may be followed in the matter of selection of students out of the eligible candidates for admission into medical colleges. It is well-known that all over India candidates who aspire to get admission into medical colleges and who are otherwise eligible or qualified for admission to medical courses on the basis of the provisions contained in Regulation I of the Council, cannot all be admitted into the medical college or institution for dearth of seats. By way of solution of this problem, the Council appears to have thought it fit to suggest the procedure which will have the effect of selecting such candidates on the basis of merit only. The procedure suggested is intended to do away with nepotism and favouritism and any unfair practice in the matter of such admission, as the procedure recommends merit to be the criterion. The Council itself appears to have apprehended that what is contained in Regulation II is merely in the nature of a recommendation and this is evident from the language used in Regulation II particularly when the same is contrasted with the language used by the Council in Regulation I. Regulation II begins with the words 'selection of students in a medical college should be based solely on merit'. We are of the opinion that the use of the words 'should be' in Regulation II is deliberate and is intended to indicate the intention of the Council that it is only in the nature of a recommendation. Regulation I which lays down the conditions or qualifications for admission into Medical Course comes within the competence of the Council under Section 33 of the Act and is mandatory and the Council has used language to manifest the mandatory character clearly, whereas Regulation II which deals with the process or procedure for selection from amongst eligible candidates for admission is merely in the nature of a recommendation and directly in nature, as laying down the process or procedure for selection for admission of candidates out of the candidates eligible or qualified for such admission under Regulation I. Regulation II recommending the process of selection is outside the authority of the Council under Section 33 of the Act and the Council has advisedly and deliberately used such language in Regulation II as makes the position clear and places the matter beyond any doubt. There is another aspect of the matter which also goes to suggest that Regulation II is merely directory and does not have any mandatory force. Apart from reservations of seats for Scheduled Castes Scheduled Tribes categories and other reservations, reservation of seats is commonly made for being filled up by nomination. In the instant case before us, it appears that the seats not exceeding three per cent are reserved for the nominees of the Government of India apart from the other reservations. These nominees of the Central Government do not have to sit for any pre-medical examination to qualify themselves for selection to the medical colleges. They must of course be eligible for admission in the sense that they must have the necessary qualification for admission in accordance with Regulation I. The candidates eligible under Regulation I are selected by virtue of nomination and there is no question of any pre-medical test for such candidates nominated by the Central Government. If Regulation II could be considered to be mandatory, there could be no such nomination of candidates by the Central Government.
26. Entry 66 in List I (Union List) of the 7th Schedule to the Constitution relates to 'co-ordination and determination of standard in institutions for higher education or research and scientific and technical institutions'. This entry by itself does not have any bearing on the question of selection of candidates to the Medical Colleges from amongst candidates who are eligible for such admission. On the other hand, entry 25 in List II (Concurrent List) of the same Schedule speaks of-'education, including technical education, medical education in Universities, subject to entries 63, 64, 65 and 66 of List I...vocational and technical training of labour'. This entry is wide enough to include within its ambit the question of selection of candidates to medical colleges and there is nothing in the entries 63, 64 and 65 of List I to suggest to the contrary. We are, therefore, of the opinion that Regulation II of the Council which is merely directory and in the nature of a recommendation has no such statutory force as to render the order in question which contravenes the said regulation illegal, invalid and unconstitutional.
27. In the case of Slate Andhra Pradesh and Ors. v. Lavu Narendranath and Ors. etc. etc : 3SCR699 this Court held at page 709 - ''the executive have a power to make any regulation which should have the effect of a law so long as it does not contravene any legislation already covering the field...'.
28. Under Article 162 of the Constitution the executive power of a State, therefore, extends to the matter with regard to which the legislature of a State has power to make laws. As there is no legislation covering the field of selection of candidates for admission to medical colleges, the State Government would, undoubtedly be competent to pass executive orders in this regard.
29. We shall now proceed to consider whether the order in question is violative of Article 15(1) and (2) of the Constitution. The High Court has held that as the order is violative of the Regulation of the Council, the order cannot be supported under Article 15(4) of the Constitution. We have earlier held that the contravention of Regulation II which is merely directory and in the nature of a recommendation does not invalidate the order. As the order in question is not liable to be struck down on the ground of contravention of Regulation II of the Council, the order can clearly be supported under Article 15(4) of the Constituion.
Coming to brasstacks, deviation from equal marks will meet with approval only if the essential conditions set out above are fulfilled. The class which enjoys reservation must be educationally handicapped. The reservation must be geared to getting ever the handicap. The rationale of reservation must be in the case of medical students, removal of regional or class inadequacy or like disadvantage.
31. The view expressed by the Patna High Court in the case of Amalendu Kumar v. State of Bihar (supra) that Article 15(1) of the Constitution cannot be meaningful and will become illusory until minimum standards of proficiency are laid down and followed in the matter of admission to Medical Colleges and if undeserving candidates are admitted into medical colleges, the standard of medical education will go down, undeserving candidates admitted to medical colleges would not be able to pass out and qualify as doctors and there may be many drop-outs and doctors not properly qualified will prove a danger to society, appears to be untenable. It fails to notice that there is no relaxation in the standard of medical education or curriculum of studies in medical colleges for those candidates after their admission to the college and the standard of examination and the curriculum remains the same for all. There may be drop-outs and many of these candidates may not qualify. There may also be such failures and drop-outs in the case of other candidates than those belonging to these categories. It is eminently desirable that some kind of minimum standard for selection for admission to medical colleges apart from eligibility should be there. It has been represented to us by the Counsel for the State that the State has, in fact, prescribed such a minimum standard for selection of even the candidates belonging to Scheduled Castes and Scheduled Tribes into medical colleges.
32. The only other ground that was urged in support of the case of the writ petitioners that the order in question is illegal and invalid, is that the order violates Ordinance 54 of the University of Jabalpur. No such ground has been taken in the writ petition. Though the High Court has considered this argument, the High Court does not appear to have come to any definite finding on this question. This question, in the instant case, cannot be said to be a question of pure law. In the affidavit which has been filed on behalf of the University, it has been stated that the Ordinance 54 has not been adhered to. In the absence of any plea being taken in the writ petition, we are of the opinion that the respondent is not entitled to urge this point and rely on any alleged contravention of Ordinance 54 of Jabalpur University.
33. In the result the order in question is not, therefore, liable to be struck down as being violative of Regulation II or of Article 15 of the Constitution. The appeal, therefore, succeeds. The Judgment and Order passed by the High Court are hereby set aside and the writ petition is dismissed. There will, however, be no order as to costs.
34. Though this appeal succeeds, yet in our opinion, justice requires that the respondent Nivedita Jain who has already been admitted to the Medical College on the basis of interim order passed by the Court and has been prosecuting her studies should be allowed to continue her studies and to continue to be student of the Medical College where she is already studying. She is otherwise a qualified candidate and eligible for admission into the medical course which she is now undergoing and the cause of justice does not require that her studies should be interrupted and her career should not be put in jeopardy. We, therefore, direct the authorities concerned to treat the student Nivedita Jain as a regular student of the college where she has been admitted and to allow her to continue her studies.

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