prof. yashpal and anr. vs. state of chhattisgarh and ors

8/12/2019 Prof. Yashpal and Anr. vs. State of Chhattisgarh and Ors. '

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Prof. Yashpal and Anr. Vs. State of Chhattisgarh and Ors.

Court :Supreme

Citations :AIR2005SC202! 2005"2#$SC%2&! '(2005"2#SC%5! "2005#5SCC)20

'udge : R.C. *ahoti+ C.'.+! ,.P. -athur and! P.. /alasuraman1an+ ''.

e3ided On :20054024%%

Appellant :Prof. Yashpal and Anr.

Respondent : State of Chhattisgarh and Ors.

'udgement:

,.P. -athur+ '.

%. Professor Yashpal+ an eminent S3ientist and former Chairman of ni6ersit1 ,rants Commission+ hasfiled 7rit Petition 8o.%& of 200) under Arti3le 92 of the Constitution 1 a1 of puli3 interest litigation

for de3laring 3ertain pro6isions of (he Chhattisgarh 8i;i shetra Visha6id1ala1a "Sthapana AurVini1aman# Adhini1am+ 2002 as ultra 6ires and for the A3t># hi3h as pulished in the ,a?ette on ).2.2002 to

estalish self4 finan3ed pri6ate uni6ersities for higher edu3ation. nder Se3tion 5 of the A3t the State haseen empoered to in3orporate and estalish a uni6ersit1 1 issuing a notifi3ation in the ,a?ette and

Se3tion permits su3h uni6ersit1 to affiliate an1 3ollege or other institution or to set up more than one3ampus ith the prior appro6al of the State ,o6ernment. (he main a6erments in the petition are that after

3oming into for3e of the A3t+ the State ,o6ernment has een+ simpl1 1 issuing notifi3ations in the

,a?ette+ estalishing uni6ersities in an indis3riminate and me3hani3al manner ithout ha6ing slightest

regard to the a6ailailit1 of an1 infrastru3ture+ tea3hing fa3ilit1 or their finan3ial resour3es. In a short spanof aout one 1ear as man1 as %%2 uni6ersities ere estalished and man1 of them had asolutel1 nouildings or 3ampus and ere running from one room tenements. (here as asolutel1 no regulation or

super6ision o6er them. (he legislation has een ena3ted in a manner hi3h has 3ompletel1 done aa1

ith an1 @ind of 3ontrol of ni6ersit1 ,rants Commission "for short >,C># o6er these pri6ateuni6ersities. (he guidelines issued 1 ,C on the 3ourses eing taught and aard of a3ademi3 degrees

has een gi6en a 3omplete go41. (he uni6ersities issued ro3hures for aard of all @inds of degrees li@e>-emer of the International Institute of -edi3al S3ien3es>+ >ello of the International Institute of

-edi3al S3ien3es> and man1 other similar degrees. (he uni6ersities are holl1 in3apale of imparting an1

edu3ation mu3h less a


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State ,o6ernment has not done an1 6erifi3ation or 3he3@ing of uni6ersities after issuan3e of notifi3ationin the ,a?ette+ hether the1 fulfill an1 norms laid don 1 the statutor1 odies+ hi3h is essential for

re3ognition of the degrees+ diplomas and 3ertifi3ates aarded 1 su3h uni6ersities. In asen3e of re


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stud1 3enters in different parts of the 3ountr1 for aard of an1 numer of degrees and diplomas. /1 a1of illustration+ 3opies of ad6ertisements issued 1 some of the uni6ersities ha6e een filed. One of su3h

uni6ersit1+ namel1+ the Indian ni6ersit1+ issued an ad6ertisement in6iting appli3ations for 8odal Ser6i3e3entersni6ersit1 3enters for aarding the folloing @ind of degrees and diplomas:

. -aster of /iote3hnolog1 Administration "-/A# 4 2 Yrs.. -aster of Insuran3e -anagement "-I-# 4 2

Yrs.. -. (e3h in /io4Informati3s 4 2 Yrs.. -. (e3h V*SI "Ver1 *arge S3ale Intg. Cir3uits# 4 2 Yrs.. -.(e3h $le3t. -e3hani3s G Poer SemiCondu3tor ri6e 4 2 Yrs.. -. (e3h $nerg1 -anagement S1stems 4

2 Yrs.. -.S3. Chem4Informati3s "Intg#/io4Informati3s"Intg# 4 5 Yrs.. -.S3. /iote3hnolog1 "Intg.# 4 5Yrs.. -.S3. /io4Informati3s/iote3hnolog1 4 2 Yrs.. /.S3. ith

/io4Informati3s-i3roiolog1/iote3hnolog1 4 9 Yrs.. /.S3. ith Automoiles S3ien3e 4 9 Yrs.. P, in

/iote3h -ar@eting 4 % Yr.. P, in Imaging "C( S3an# G "-RI# 4 2 Yrs.. P, in /io4Informati3s 4 %.5Yrs.. P, iploma in Chem4Informati3s 4 % Yr.. P, iploma in -oile (e3hnolog1 4 % Yr.. P, iploma

in $nerg1 Audit and Conser6ation 4 % Yr.. P, iploma in A3tuarialS3ien3es in /io4Informati3s 4 % Yr.

(he rit petitioner+ not @noing the 3orre3t fa3ts+ responded for opening up a stud1 3enter and he as

as@ed to deposit Rs. 50+0004 hi3h he did 1 to emand rafts. On en Certified that folloing PARA -$ICA* CORS$S are appro6ed 1 I8IA8 8IV$RSI(Y+

RAIPR.

%# / P ( 4 2 Year

2# /a3helor of Ophthalmolog1 4 2 Year

9# / - * ( 4 ) Year

)# P, iploma in Imaging "-RI# 4 % Year

It is further 3ertified that for Para -edi3al Course -CI appro6al is not re

It is further a6erred that the Indian ni6ersit1+ Raipur also issued an ad6ertisement in6iting appli3ationsfor admission to 3ertain t1pes of te3hni3al 3ourses in its alleged 3ampus at ,raduate S3hool of /usiness G

Administration+ ,reater 8oida+ hi3h is in the distri3t of ,autam /udh 8agar+ in the State of P and itas mentioned therein that the 3andidates ma1 appl1 to the Registrar 1 sending a /an@ raft of Rs.

D004. A photo3op1 of the ad6ertisement has een filed. It has thus een sumitted that though the pri6ate

uni6ersities ha6e no infrastru3ture for imparting an1 @ind of edu3ation+ the1 ere alluring people all o6er

the 3ountr1 to open stud1 3enters for hi3h the1 ere 3harging huge amount and also efooling studentsto appl1 for admission to holl1 un@non and unheard of te3hni3al+ medi3al and other professional3ourses hi3h are not re3ogni?ed 1 an1 statutor1 authorit1+ and there1 a sustantial amount of mone1

has een 3olle3ted.

5. In a stereot1ped manner ,a?ette notifi3ations ere issued notif1ing a ni6ersit1 and 1 a1 of

illustration one su3h notifi3ation is eing reprodu3ed elo :

>Raipur+ the %%th O3toer+ 2002

8o. . B&............02. 4In e=er3ise of the poers 3onferred 1 su4Se3tion "%# of Se3tion 5 of the

Chhattisgarh 8i;i shetra Visha6id1ala1a "Sthapana Aur Vini1aman#+ Adhini1am+ 2002 "8o. 2 of 2002#for e=tension of Figher(e3hni3al $du3ation in Chhattisgarh+ here1+ estalishes a ni6ersit1 @non as>Indian ni6ersit1+ Raipur> ith effe3t from the date of puli3ation of this notifi3ation in the Chhattisgarh

,a?ette and the ;urisdi3tion of the ni6ersit1 shall e=tend o6er hole of Chhattisgarh.


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2. (he Fead Offi3e of the ni6ersit1 shall e at Raipur.

9. (he State ,o6ernment+ here1 authori?es >Indian ni6ersit1+ Raipur> to 3ondu3t the s1llaus and to

grant degree or diplomas for hi3h it shall e re3ogni?ed or authori?ed as ma1 e re

. Se6eral legal issues ha6e also een raised in the rit petitions and the prin3ipal eing that the mannerin hi3h these pri6ate uni6ersities are fun3tioning ould result in 3reating a 3omplete 3haos in the s1stem

of higher edu3ation in the 3ountr1 and the e=pert odies 3reated 1 the Central ,o6ernment li@e+ni6ersit1 ,rants Commission+ -edi3al Coun3il of India+ All India Coun3il for (e3hni3al $du3ation et3.

for 3oordination and determination of standards in their on respe3ti6e fields ould not e ale to

perform their statutor1 dut1 and ould ma@e their fun3tioning not onl1 diffi3ult ut almost impossile.

B. (he State of Chhattisgarh has filed rief ut almost identi3al 3ounter affida6its in oth the rit

petitions. (he main plea ta@en therein is that in 6ie of $ntr1 92 *ist II of Se6enth S3hedule to theConstitution+ the State has the legislati6e 3ompeten3e to ma@e an ena3tment regarding in3orporation of a

ni6ersit1. (he impugned A3t had een passed to fa3ilitate estalishment of pri6ate ni6ersities ith a6ie to 3reate supplementar1 resour3es for assisting the State ,o6ernment in pro6iding


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9. (he institutions @non at the 3ommen3ement of this Constitution as the /anaras Findu ni6ersit1+the Aligarh -uslim ni6ersit1 and the elhi ni6ersit1! the ni6ersit1 estalished in pursuan3e of

arti3le 9B%$! an1 other institution de3lared 1 Parliament 1 la to e an institution of nationalimportan3e.

). Institutions for s3ientifi3 or te3hni3al edu3ation finan3ed 1 the ,o6ernment of India holl1 or in part

and de3lared 1 Parliament 1 la to e institutions of national importan3e.

5. nion agen3ies and institutions for 4

"a# professional+ 6o3ational or te3hni3al training+ in3luding the training of poli3e offi3ers! or

"# the promotion of spe3ial studies or resear3h! or

"3# s3ientifi3 or te3hni3al assistan3e in the in6estigation or dete3tion of 3rime.

. Co4ordination and determination of standards in institutions for higher edu3ation or resear3h and

s3ientifi3 and te3hni3al edu3ation.

*IS( II 4 S(A($ *IS(

%%. $du3ation in3luding uni6ersities+ su;e3t to the pro6isions of $ntries 9+ )+ 5 and of *ist I and

$ntr1 25 of *ist III.

"(his $ntr1 as deleted 1 ort14se3ond Amendment A3t#

92. In3orporation+ regulation and inding up of 3orporation+ other than those spe3ified in *ist I+ anduni6ersities! unin3orporated trading+ literar1+ s3ientifi3+ religious and other so3ieties and asso3iations!

3o4operati6e so3ieties.

*IS( III 4 CO8CRR$8( *IS(

25. $du3ation+ in3luding te3hni3al edu3ation+ medi3al edu3ation and uni6ersities+ su;e3t to the pro6isionsof entries 9+ )+ 5 and of *ist I! 6o3ational and te3hni3al training of laour.

(he Constitution "ort14se3ond Amendment# A3t+ %&B hi3h 3ame into for3e on 9.%.%&BB omitted $ntr1%% from *ist II and transferred that su;e3t to e 3omined ith $ntr1 25 of *ist III.

&. (he foundation for a federal set up for the nation as laid in the ,o6ernment of India A3t+ %&95.(hough in e6er1 respe3t the distriution of legislati6e poer eteen the nion and the States as

en6isaged in the %&95 A3t has not een adopted in the Constitution ut the asi3 frameor@ is same. Itill e seen that $ntr1 %B in *ist II of Se6enth S3hedule in ,o6ernment of India A3t spe3ifi3all1 pro6ided

for ni6ersities and the same is no part of $ntr1 92 in *ist II of the Se6enth S3hedule of the

Constitution. $ntries %B and 99 of *ist II of ,o6ernment of India A3t ha6e een 3omined and made one3omposite entr1 "$ntr1 92# in *ist II of the Se6enth S3hedule of the Constitution.

%0. Fo the ord >ni6ersities> o33urring as a legislati6e head in the Se6enth S3hedule should einterpreted+ one has to loo@ to the legislati6e pra3ti3e regarding interpretation of Constitutional entries.

or this purpose+ it ill e useful to refer to some ell4@non de3isions.

In South Carolina 6. nited States+ "%&05# %&& S )9B+ the prin3iple as stated as under :

>(o determine the e=tent of the grants of poer+ e must+ therefore+ pla3e oursel6es in the position of themen ho framed and adopted the Constitution+ and in


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In $= parte ,rossman+ "%&25# 2B S DB+ the .S. Supreme Court oser6ed that the language of theConstitution 3annot e interpreted safel1 e=3ept 1 referen3e to the 3ommon la and to /ritish

institutions as the1 ere hen the instrument as framed and adopted. In Croft 6. unph1+ %&99 AC %5+it as held as under :

>7hen a poer is 3onferred to legislate on a parti3ular topi3 it is important+ in determining the s3ope of

the poer+ to ha6e regard to hat is ordinaril1 treated as emra3ed ithin that topi3 in legislati6e pra3ti3eand parti3ularl1 in the legislati6e pra3ti3e of the State hi3h has 3onferred the poer. (hus in 3onsidering

hat might e appropriatel1 and legitimatel1 ena3ted in relation to >an@rupt31 and insol6en31> it as3onsidered rele6ant to dis3uss the usual 3ontents of an@rupt31 statutes.>

Similarl1+ in 7alla3e /rothers and Co. *td. 6. Commissioner of In3ome4ta=+ /oma1+ + the 'udi3ialCommittee oser6ed that here Parliament has 3onferred a poer to legislate on a parti3ular topi3 it is

permissile and important in determining the s3ope and meaning of the poer to ha6e regard to hat isordinaril1 treated as emra3ed ithin that topi3 in the legislati6e pra3ti3e of the nited ingdom. (he

o;e3t is to as3ertain the general 3on3eption in6ol6ed in the ords in the enaling A3t.

%%. In Constitutional *a of India 1 Seer6ai+ the learned author has said in para 2.%2 "9rd ed.# that the

golden rule of interpretation is that ords should e read in their ordinar1+ natural and grammati3al

meaning su;e3t to the rider that in 3onstruing ords in a Constitution 3onferring legislati6e poer themost lieral 3onstru3tion should e put upon the ords so that the1 ma1 ha6e effe3t in their idest

amplitude. (his is su;e3t to 3ertain e=3eptions and a restri3ted meaning ma1 e gi6en to ords if it isne3essar1 to pre6ent a 3onfli3t eteen to e=3lusi6e entries.

%2. (he framers of the Constitution ha6ing adopted "ith some modifi3ation# the legislati6e entries onni6ersities from the ,o6ernment of India A3t+ %&95 made 1 the /ritish Parliament+ the full 3ontent and

amplitude of the entr1 3an e 3omprehended 1 e=amining ho a ni6ersit1 is understood and hat is its3on3ept in .. and .S.A. hose pattern as folloed in se6eral matters and hi3h the founding fathers

had in their mind.

%9. In Volume %5 Falsur1>s *as of $ngland "ourth ed. Reissue# hat is a ni6ersit1 and ho it isin3orporated is des3ried as under :

Para 25. ,eneral. A uni6ersit1 is the hole od1 of tea3hers and s3holars engaged+ at a parti3ular pla3e+

in gi6ing and re3ei6ing instru3tion in the higher ran3hes of learning! su3h persons asso3iated together as

a so3iet1 or 3orporate od1+ ith definite organi?ation and a3@noledged poers and pri6ileges"espe3iall1 that of 3onferring degrees#+ and forming an institution for the promotion of edu3ation in the

higher or more important ran3hes of learning! also+ the 3olleges+ uildings and other propert1 elongingto su3h a od1. Although the institutions to hi3h it refers are readil1 identifiale+ pre3ise and a33urate

definition is diffi3ult. (he essential feature of a uni6ersit1 seems to e that it as in3orporated as su3h 1

the so6ereign poer.

Other attriutes of a uni6ersit1 appear to e the admission of students from all parts of the orld+ a

pluralit1 of masters+ the tea3hing of one at least of the higher fa3ulties+ namel1 theolog1+ la orphilosoph1 "hi3h in some definitions are regarded as identi3al# and medi3ine+ pro6ision for residen3e

and the right to 3onfer degrees+ ut possession of these attriutes ill not ma@e an institution a uni6ersit1in the asen3e of an1 e=press intention of the so6ereign poer to ma@e it one. A uni6ersit1 in6ol6es the

relation of tutor and pupil! it is 3harged ith the super6ision and upringing of the pupil under tuition.

In3orporation as an3ientl1 effe3ted 1 papal grant or 3harter+ and later 1 ro1al 3harter or A3t ofParliament.

(he pra3ti3e adopted in the 3ase of the most re3ent foundations is to in3orporate the uni6ersit1 1 ro1al3harter+ to hi3h there is anne=ed a s3hedule 3ontaining the original statutes of the uni6ersit1+ and

thereafter to otain the passing of a lo3al A3t of Parliament 6esting in the uni6ersit1 the propert1 andliailities of an1 institution hi3h it repla3es and ma@ing other ne3essar1 pro6isions.


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A 3op1 of an1 appli3ation for a 3harter for the foundation of an1 3ollege or uni6ersit1 hi3h is referred 1the Hueen in Coun3il for the report of a 3ommittee of the Pri61 Coun3il must e laid efore Parliament+

together ith a 3op1 of the draft 3harter+ for not less than 90 da1s efore the 3ommittee reports upon it.

In %5A Ameri3an 'urispruden3e 2d >ni6ersit1> has een defined as under :

Para %. efinitions.

Properl1 spea@ing+ a >uni6ersit1> is an aggregation or union of 3olleges. It is an institution in hi3h theedu3ation imparted is uni6ersal+ emra3ing man1 ran3hes+ su3h as the arts+ s3ien3es+ and all manner ofhigher learning+ and hi3h possesses the poer to 3onfer degrees indi3ating profi3ien31 in the ran3hes

taught.

(he ord >3ollege> has een said to e emplo1ed in the nited States to indi3ate an institution of learning+

ha6ing 3orporate poers+ and possessing the right to 3onfer degrees+ and hi3h+ ith referen3e to itsedu3ational or@+ 3onsists of the trustees+ tea3hers+ and s3holars+ all of hom ma@e up the memership of

the 3ollege and represent its a3ti6e or@. (he term >3ollege> ma1 also e used to indi3ate a uilding+ orgroup of uildings+ in hi3h s3holars are housed+ fed+ instru3ted+ and go6erned hile 3ollege> and >uni6ersit1> 3on6e1 the same idea+ differing onl1 in grade+ ith ea3hindi3ating an institution of learning 3onsisting of trustees+ tea3hers+ and s3holars as ma@ing up its

memership and representing its a3ti6e or@+ or an institution engaged in imparting @noledge toresident students and possessing the right to 3onfer degrees.

In the footnote to this paragraph referen3e is made to a de3ision hi3h has some @ind of similarit1 ith

the 3ase in hand and the footnote reads as under :

A s3hool offering 3orresponden3e 3ourses in professional and other edu3ational su;e3ts+ sending studentste=too@s and lessons to stud1+ gi6ing e=aminations ased thereon+ and aarding diplomas or degrees+

ut ha6ing no entran3e reni6ersit1> has een des3ried as under :

"Page %5# ni6ersit1+ institution of higher edu3ation+ usuall1 3omprising a lieral arts and s3ien3es

3ollege and graduate and professional s3hools and ha6ing the authorit1 to 3onfer degrees in 6arious fields

ofstud1.................................................................................................................................................................

...............

"Page %D# ni6ersities and students loo@ed toard a1s of 3reating opportunities for a satisf1ing 3areeroutside traditional roles for graduates in s3holarship+ tea3hing+ and the professions. (he uni6ersit1>s asi3traditional fun3tions remain un3hanged 4 enaling students to learn from their 3ultural heritage+ helping

them to reali?e their intelle3tual and 3reati6e ailities+ and en3ouraging them to e3ome humane and

responsile people. (he uni6ersit1 e=pands @noledge a3ross the entire spe3trum of dis3iplines+ and it3an add to the understanding and en;o1ment of life. It 3ontinues to e needed for imaginati6e solutions to

the prolems of so3iet1.

%). Shortl1 after independen3e on ).%%.%&)D the ,o6ernment of India 3onstituted a Commission @non

as >ni6ersit1 $du3ation Commission> of hi3h r. S. Radha@rishnan as the Chairman. r. (ara Chand+former Vi3e4Chan3ellor+ Allahaad ni6ersit1+ r. Ea@ir Fussain+ Vi3e4Chan3ellor+ Aligarh -uslim

ni6ersit1+ r. A. *a@shmanasami -udaliar+ Vi3e4 Chan3ellor+ -adras ni6ersit1+ r. -eghnad Saha+ean+ a3ult1 of S3ien3e+ Cal3utta ni6ersit1 and 5 other eminent personalities in the field of edu3ation

ere its memers. (he Commission ga6e a 6er1 long and e=hausti6e report. Chapter II of the report deals

ith the aims of ni6ersit1 edu3ation and Para 2 of Part I is illustrati6e and the same is eing reprodu3edelo :


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>2. ni6ersities as the Organs of Ci6ili?ation 4 Fe indeed must e lind ho does not see that+ might1 asare the politi3al 3hanges+ far deeper are the fundamental

In the introdu3tor1 paragraph of Chapter IV dealing ith standards of tea3hing+ the Commission re3orded

its 6ies in the folloing ords :

(he need for Figh Standards.

Introdu3tion 4 It is the primar1 dut1 of a uni6ersit1 to maintain the highest standards of its tea3hing and

e=aminations. A uni6ersit1 is a pla3e of higher edu3ation here the personalit1 and 3apa3ities of thestudents are de6eloped to the utmost 1 tea3hers ho should themsel6es e at or@ at the frontiers of

@noledge in their respe3ti6e fields. (he su33ess of a uni6ersit1 is to e ;udged as mu3h 1 the t1pe of

graduate it turns out as 1 the amount and ..........Our uni6ersities should maintain the a3ademi3 3hara3ter of their or@ on a le6el re3ogni?ed as

ade

%5. (he ,o6ernment of India 3onstituted a Committee in e3emer+ %&% to 3onsider roadl1 theorgani?ational stru3ture of the ni6ersities in India and to prepare the outline of a >-odel A3t> suited to

their role and fun3tions of hi3h r. .S. othari+ Chairman+ ,C as the Chairman and se6eral otherpersons ho ere either Vi3e4Chan3ellors of ni6ersities or ere 3onne3ted ith the field of edu3ation

ere memers. In the 3on3luding part of the irst Chapter+ the Committee noted as under :

>.......(he fun3tion of the uni6ersit1 is not onl1 to preser6e+ disseminate and ad6an3e @noledge ut also to

furnish intelle3tual leadership and moral tone to so3iet1. 8o less important is the role of uni6ersities in

promoting national integration and a 3ommon 3ulture+ and in ringing aout the so3ial transformation thatis desired. inall1+ uni6ersities ha6e also to pro6ide trained personnel to ad6an3e the 3ountr1>s prosperit1

1 ma@ing full use of modern @noledge. (he organi?ational pattern must enale the uni6ersities to

a3hie6e these o;e3ti6es.>

(hese reports prepared 1 most learned and eminent edu3ationists in post independen3e era highlight theprimar1 fun3tion of the ni6ersities 6i?. tea3hing and resear3h and to pro6ide trained and


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%. (hough in3orporation of a ni6ersit1 as a legislati6e head is a State su;e3t "$ntr1 92 *ist II# utasi3all1 ni6ersit1 is an institution for higher edu3ation and resear3h. $ntr1 of *ist I is 3oordination

and determination of standards in institutions for higher edu3ation or resear3h and s3ientifi3 and te3hni3alinstitutions. (here 3an thus e a 3lash eteen the poers of the State and that of the nion. (he

interpla1 of 6arious entries in this regard in the three lists of the Se6enth S3hedule and the real import of

$ntr1 of *ist I ha6e een e=amined in se6eral de3isions of this Court. In ,u;arat ni6ersit1 6. Shririshna : AIR%&9SCB09 + a de3ision 1 a Constitution /en3h rendered prior to ort14se3ond

Amendment hen $ntr1 %% of *ist II as in e=isten3e+ it as held that Item 8o.9 to of *ist I are

3ar6ed out of the su;e3t of edu3ation and in respe3t of these items the poer to legislate is 6estede=3lusi6el1 in the Parliament. (he use of the e=pression >su;e3t to> in item %% of *ist II of the Se6enth

S3hedule 3learl1 indi3ates that the legislation in respe3t of e=3luded matters 3annot e underta@en 1 theState *egislatures. In para 29+ the Court held as under :

>.....................................Poer of the State to legislate in respe3t of edu3ation in3luding ni6ersities mustto the e=tent to hi3h it is entrusted to the nion Parliament+ hether su3h poer is e=er3ised or not+ e

deemed to e restri3ted. If a su;e3t of legislation is 3o6ered 1 items 9 to e6en if it otherise falls

ithin the larger field of >edu3ation in3luding ni6ersities> poer to legislate on that su;e3t must lie iththe Parliament................................................................... Item %% of *ist II and item of *ist I must e

harmoniousl1 3onstrued. (he to entries undoutedl1 o6erlap! ut to the e=tent of o6erlapping+ the poer

3onferred 1 item *ist I must pre6ail o6er the poer of the State under item %% of *ist II. It is manifestthat the e=3luded heads deal primaril1 ith edu3ation in institutions of national or spe3ial importan3e and

institutions of higher edu3ation in3luding resear3h+ s3ien3es+ te3hnolog1 and 6o3ational training of laour.

(he folloing oser6ations in paras 2) and 25 highlight the suprema31 of legislation made 1 theParliament ith referen3e to $ntr1 :

>2) ...................... (he 6alidit1 of the State legislation on ni6ersit1 edu3ation and as regards theedu3ation in te3hni3al and s3ientifi3 institutions not falling ithin $ntr1 ) of *ist I ould ha6e to e

;udged ha6ing regard to hether it impinges on the field reser6ed for the nion under $ntr1 . In other

ords+ the 6alidit1 of State legislation ould depend upon hether it pre;udi3iall1 affe3ts 3o4ordinationand determination of standards+ ut not upon the e=isten3e of some definite nion legislation dire3ted to

a3hie6e that purpose. If there e nion legislation in respe3t of 3o4ordination and determination ofstandards+ that ould ha6e paramount31 o6er the State la 1 6irtue of the first part of Ar. 25)"%#! e6en if

that poer e not e=er3ised 1 the nion Parliament the rele6ant legislati6e entries eing in the e=3lusi6e

lists+ a State la tren3hing upon the nion field ould still e in6alid.

25 ...................... Item 8o. is a legislati6e head and in interpreting it+ unless it is e=pressl1 or ofne3essit1 found 3onditioned 1 the ords used therein+ a narro or restri3ted interpretation ill not e put

upon the generalit1 of the ords. Poer to legislate on a su;e3t should normall1 e held to e=tend to all

an3illar1 or susidiar1 matters hi3h 3an fairl1 and reasonal1 e said to e 3omprehended in that

su;e3t. Again there is nothing either in item or elsehere in the Constitution hi3h supports thesumission >that the e=pression >3o4ordination> must mean in the 3onte=t in hi3h it is used merel1

e6aluation+ 3o4ordination in its normal 3onnotation means harmonising or ringing into proper relation inhi3h all the things 3o4ordinated parti3ipate in a 3ommon pattern of a3tion. (he poer to 3o4ordinate+

therefore+ is not merel1 poer to e6aluate+ it is a poer to harmonise or se3ure relationship for 3on3erteda3tion. (he poer 3onferred 1 item *ist I is not 3onditioned 1 the e=isten3e of a state of emergen31

or une

%B. (he same 3oordination> used in $ntr1 of the nion *ist of the Se6enth S3hedule to theConstitution does not merel1 mean e6aluation. It means harmonisation ith a 6ie to forge a uniform

pattern for a 3on3erted a3tion a33ording to a 3ertain design+ s3heme or plan of de6elopment. It+ therefore+

in3ludes a3tion not onl1 for remo6al of disparities in standards ut also for pre6enting the o33urren3e of


10/24

su3h disparities. It ould+ therefore+ also in3lude poer to do all things hi3h are ne3essar1 to pre6enthat ould ma@e >3oordination> either impossile or diffi3ult. (his poer is asolute and un3onditional

and in the asen3e of the 6alid 3ompelling reasons+ it must e gi6en its full effe3t a33ording to its plainand e=press intention.

"ii# (o the e=tent that the State legislation is in 3onfli3t ith the Central legislation though the former is

purported to ha6e een made under $ntr1 25 of the Con3urrent *ist ut in effe3t en3roa3hes uponlegislation in3luding suordinate legislation made 1 the 3enter under $ntr1 25 of the Con3urrent *ist or

to gi6e effe3t to $ntr1 of the nion *ist+ it ould e 6oid and inoperati6e.

%D. In Osmania ni6ersit1 (ea3hers Asso3iation 6. State of Andhra Pradesh and Anr. : %&DBJ9SCR&)& +

the Court reiterated that it as the e=3lusi6e responsiilit1 of the Central ,o6ernment to determine thestandards for higher edu3ation and the same should not e loered at the hands of an1 parti3ular State as

it as of great importan3e to national progress. After referring to the Constitution /en3h de3ision inerala State $le3tri3it1 /oard 6. Indian Aluminium Co. : %&BJ%SCR552 + here it as held that hen

an entr1 is in general terms in *ist II and part of that entr1 is in spe3ifi3 terms in *ist I+ the entr1 in *ist I

ta@es effe3t notithstanding the entr1 in *ist II+ the Court held as under in para %) of the reports :

>%). $ntr1 25 *ist III relating to edu3ation in3luding te3hni3al edu3ation+ medi3al edu3ation and

uni6ersities has een made su;e3t to the poer of Parliament to legislate under $ntries 9 to of *ist I.$ntr1 *ist I and $ntr1 25 *ist III should+ therefore+ e read together. $ntr1 gi6es poer to nion to

see that a reedu3ation> has een distriuted eteen *ist I and

*ist III of the Se6enth S3hedule.>

%&. (he interpla1 of $ntr1 *ist I and $ntr1 25 *ist III as again e=amined 1 a Constitution /en3h in

r. Preeti Sri6asta6a and Anr. 6. State of -.P. and Ors. : AIR%&&&SC2D&) in the 3onte=t of loering ofstandards 1 the State for admission to a Post ,raduate 3ourse in a -edi3al College and it as held that

the State 3annot hile 3ontrolling edu3ation in the State impinge on standards in institutions for higher

edu3ation e3ause this is e=3lusi6el1 ithin the pur6ie of the nion ,o6ernment. 7hile 3onsidering the


11/24

standards is maintained.

2%. In order to a3hie6e the aforesaid purpose+ the Parliament has ena3ted the ni6ersit1 ,rants

Commission A3t. irst para of the Statement of O;e3ts and Reasons of the ni6ersit1 ,rantsCommission A3t+ %&5 "for short >,C A3t># is illustrati6e and 3onse(he Constitution of India 6ests Parliament ith e=3lusi6e authorit1 in regard to >3o4ordination and

determination of standards in institutions for higher edu3ation or resear3h and s3ientifi3 and te3hni3alinstitutions>. It is o6ious that neither 3o4ordination nor determination of standards is possile unless the

Central ,o6ernment has some 6oi3e in the determination of standards of tea3hing and e=amination in

ni6ersities+ oth old and ne. It is also ne3essar1 to ensure that the a6ailale resour3es are utili?ed to theest possile effe3t. (he prolem has e3ome more a3ute re3entl1 on a33ount of the tenden31 to multipl1

ni6ersities. (he need for a properl1 3onstituted Commission for determining and allo3ating toni6ersities funds made a6ailale 1 the Central ,o6ernment has also e3ome more urgent on this

a33ount.

In the se3ond para it is said that the Commission ill also ha6e the poer to re3ommend to an1

ni6ersit1 the measures ne3essar1 for the reform and impro6ement of ni6ersit1 edu3ation and to ad6ise

the ni6ersit1 3on3erned upon the a3tion to e ta@en for the purpose of implementing su3hre3ommendation. (he Commission ill a3t as an e=pert od1 to ad6ise the Central ,o6ernment on

prolems 3onne3ted ith the 3o4 ordination of fa3ilities and maintenan3e of standards in ni6ersities.

22. (he preamle of the ,C A3t sa1s 4 an A3t to ma@e pro6ision for the 3oordination and determination

of standards in ni6ersities and for that purpose to estalish a ni6ersit1 ,rants Commission. Se3tion2"f# of this A3t defines a ni6ersit1 and it means a ni6ersit1 estalished or in3orporated 1 or under a

Central A3t+ a Pro6in3ial A3t or a State A3t+ and in3ludes an1 su3h institution as ma1+ in 3onsultation iththe ni6ersit1 3on3erned+ e re3ogni?ed 1 the Commission in a33ordan3e ith the regulations made in

this ehalf under this A3t. Clause %2 pro6ides that it shall e the general dut1 of the Commission to ta@e+

in 3onsultation ith the ni6ersities or other odies 3on3erned+ all su3h steps as it ma1 thin@ fit for thepromotion and 3o4ordination of ni6ersit1 edu3ation and determination and maintenan3e of standards of

tea3hing+ e=amination and resear3h in ni6ersities+ and for the purpose of its fun3tions under the A3t+ theCommission ma1 do all su3h a3ts enumerated in su4se3tions "a# to ";# thereof. Se3tions 22 and 29 are

important and are eing reprodu3ed elo :

22. Right to 3onfer degrees 4 "%# (he right of 3onferring or granting degree shall e e=er3ised onl1 1 ani6ersit1 estalished or in3orporated 1 or under a Central A3t+ a Pro6in3ial A3t or a State A3t or an

institution deemed to e a ni6ersit1 under se3tion 9 or an institution spe3iall1 empoered 1 an A3t ofParliament to 3onfer or grant degrees.

"2# Sa6e as pro6ided in su4se3tion "%#+ no person or authorit1 shall 3onfer+ or grant+ or hold himself oritself out as entitled to 3onfer or grant an1 degree.

"9# or the purpose of this se3tion+ >degree> means an1 su3h degree as ma1+ ith the pre6ious appro6al ofthe Central ,o6ernment+ e spe3ified in this ehalf 1 the Commission 1 notifi3ation in the Offi3ial

,a?ette.>

29. Prohiition of the use of the ord >ni6ersit1> in 3ertain 3ases. 4 8o institution+ hether a 3orporate

od1 or not+ other than a ni6ersit1 estalished or in3orporated 1 or under a Central A3t+ a Pro6in3ialA3t or a State A3t shall e entitled to ha6e the ord >ni6ersit1> asso3iated ith its name in an1 manner

hatsoe6er:Pro6ided that nothing in this se3tion shall+ for a period of to 1ears from the 3ommen3ement

of this A3t+ appl1 to an institution hi3h immediatel1 efore su3h 3ommen3ement+ had the ord>ni6ersit1> asso3iated ith its name.

29. It is important to note that in 6ie of Se3tion 22 of ,C A3t+ the right of 3onferring or grantingdegree 3an e e=er3ised onl1 1 ni6ersit1 or an institution deemed to e ni6ersit1 under Se3tion 9 of


12/24

the aforesaid A3t or institution espe3iall1 empoered 1 an A3t of Parliament to 3onfer or grant degrees.7hat is a >degree> and hat it 3onnotes is not gi6en in the ,C A3t ut the meaning of the ord as gi6en

in di3tionaries and standard oo@s is as under :

7ester>s (hird 8e : A title 3onferred upon students 1 a 3ollege+International i3tionar1 uni6ersit1+ or

professional s3hool upon3ompletion of a unified programme ofstud1 3arr1ing a spe3ified minimum

of3redits+ passing of 3ertain e=aminations+and often 3ompletion of a thesis or otherindependent resear3hpro;e3t.2. A grade or 3lass of memership attained ina ritualisti3 order or so3iet1 denoting astage of

profi3ien31 often after a set ordealor e=amination.7harton>s *a *e=i3on : (he state of a person+ as to ea arrister4at4la+or to e a /a3helor or -aster of Arts of ani6ersit1.Chamers>s (entieth : A mar@ of

distin3tion 3onferred 1 uni6ersities+Centur1 i3tionar1 hether earned 1 e=amination or granted as

amar@ of honour.P. Ramanatha Ai1ar : A mar@ of distin3tion 3onferred upon a student*a *e=i3on "2nd$d# for profi3ien31 in some art or s3ien3e! ni6ersit1diploma of spe3ified profi3ien31.$n313lopedia

Ameri3ana

>$,R$$> 4 the title 3onferred 1 a 3ollege or uni6ersit1+ signif1ing that a 3ertain step or grade has een

attained in an area of learning. (he aard of a diploma 3onferring the a3helor>s degree mar@s 3ompletionof undergraduate stud1. (he master>s and do3tor>s degrees reard graduate stud1. Other degrees 3onstitute

e6iden3e of preparation for professional or@ 4 the -.. "do3tor of medi3ine# for e=ample.

In the 20th 3entur1+ hoe6er+ the -.A. is granted in Ameri3an uni6ersities and in those of $ngland and

the Commonealth of 8ations "apart from O=ford and Camridge# on the asis of stud1 e1ond the /.A.and the presentation "usuall1# of a thesis. An e=3eption is S3otland+ here the -.A. has een the first

degree 3onferred in all si= uni6ersities e6er sin3e their founding. (he a3helor of philosoph1 and a3helor

of letters degrees are gi6en for or@ e1ond the -.A.

(he 8e $n313lopedia /ritanni3a >egree> 4 in edu3ation+ an1 of se6eral titles 3onferred 1 3olleges anduni6ersities to indi3ate the e=tent of a3ademi3 a3hie6ement. (he hierar3h1 of degrees+ dating from the

%9th 3entur1+ on3e resemled the medie6al guild s1stem. In the nited States and ,reat /ritain+ the

modern gradation of a3ademi3 degrees is usuall1 a3helor "or a33alaureate#+ master+ and do3tor. 7ithsome e=3eptions+ intermediate degrees+ su3h as those of a3helor and master+ ha6e een aandoned in the

uni6ersities of 3ontinental $urope.

A degree 3onferred 1 a ni6ersit1 is a proof of the fa3t that a person has studied a 3ourse of a parti3ular

higher le6el and has su33essfull1 passed the e=amination 3ertif1ing his profi3ien31 in the said su;e3t of

stud1 to su3h le6el. In the 3ase of a o3torate degree+ it 3ertifies that the holder of the degree has attaineda high le6el of @noledge and stud1 in the 3on3erned su;e3t 1 doing some original resear3h or@. A

ni6ersit1 degree 3onfers a @ind of a status upon a person li@e a graduate or a post4graduate. (hose hoha6e done resear3h or@ and ha6e otained a Ph..+ .*it.+ or .S3. degree e3ome entitled to rite the

ord >o3tor> efore their name and 3ommand 3ertain amount of respe3t in so3iet1 as edu3ated and

@noledgeale persons. (hat apart the prin3ipal ad6antage of holding a ni6ersit1 degree is in the matterof emplo1ment+ here a minimum


13/24

the Commission 1 notifi3ation in the Offi3ial ,a?ette. (he 6alue and importan3e of su3h degrees hi3hare re3ogni?ed 1 ,o6ernment as pointed out 1 a Constitution /en3h in A?ee? /asha 6. nion of India

: %&DJ%SCRD99 .

25. Fa6ing seen hat is the 3on3ept of a ni6ersit1 and hat is the 6alue of a degree aarded 1 it+ the

S3heme and the pro6isions of the impugned A3t ma1 no e e=amined. (he Preamle of the A3t sa1s

that it is an A3t to pro6ide for estalishment of self finan3ed pri6ate ni6ersities for imparting Figher$du3ation and to regulate their fun3tions and for matters 3onne3ted thereith or in3idental thereto. Some

of the pro6isions of the A3t hi3h ha6e a earing on the 3ontro6ers1 in6ol6ed are eing reprodu3edelo :

Se3tion 2. In this Adhini1am+ unless the 3onte=t otherise reSponsoring /od1> in relation to a ni6ersit1 means4

"i# a So3iet1 registered under the -adh1a Pradesh So3ieties Registri@aran Adhini1am+ %&B9 "8o. )) of%&B9#

"ii# an1 Puli3 (rust! or

"iii# a Compan1 registered under Se3tion 25 of the Companies A3t+ %&5 "8o. % of %&5#!

"3# >Statute> means a Statute of the ni6ersit1!

"d# >ni6ersit1> means a ni6ersit1 estalished under su4 se3tion "%# of Se3tion 5.

9. (he o;e3ts of the ni6ersit1 shall e 4

%. to pro6ide instru3tions+ tea3hing and training in Figher $du3ation and ma@e pro6isions for resear3h+

ad6an3ement and dissemination of @noledge!

2. to 3reate higher le6els of intelle3tual ailities!

9. to estalish state of the art fa3ilities for edu3ation and training!

). to 3arr1 out tea3hing and resear3h and offer 3ontinuing edu3ation programmes!

5. to 3reate 3enters of e=3ellen3e for resear3h and de6elopment and for sharing @noledge and its

appli3ation!

. to pro6ide 3onsultan31 to the industr1 and puli3 organi?ations!

B. to estalish main 3ampus in Chhattisgarh and to ha6e stud1 3enters at different pla3es in India andother 3ountries!

D. to estalish e=amination 3enters!

&. to institute degrees+ diplomas+ 3ertifi3ates and other a3ademi3 distin3tions on the asis of e=amination+

or an1 other method of e6aluation!

%0. to pursue an1 other o;e3ti6e as ma1 e appro6ed 1 the State ,o6ernment!

%%. to ensure that the standard of the degrees+ diplomas+ 3ertifi3ates and other a3ademi3 distin3tions are

not loer than those laid don 1 AIC($8C($,C-CI and Pharma31 Coun3il et3!


14/24

). "%# An appli3ation 3ontaining the Pro;e3t Report to estalish A ni6ersit1 for 3arr1ing out an1 or all ofthe o;e3ts enumerated in se3tion 9 of this Adhini1am shall e made to the State ,o6ernment 1 the

Sponsoring /od1 along ith su3h fee as ma1 e pres3ried.

"2# (he Pro;e3t Report shall 3ontain the folloing parti3ulars+ namel1 44

"a# the o;e3ts of the ni6ersit1 along ith the details of the Sponsoring /od1!

"# the e=tent and the status of the ni6ersit1 and the a6ailailit1 of land!

"3# the nature and the t1pe of programmes of stud1 and resear3h to e underta@en in the ni6ersit1 during

a period not less than the ne=t fi6e 1ears!

"d# the nature of fa3ulties+ 3ourses of stud1 and resear3h proposed to e started!

"e# the 3ampus de6elopment su3h as uilding+ e


15/24

"2# $6er1 notifi3ation issued under su4se3tion "%# shall e laid on the tale of the *egislati6e Asseml1.

. "%# $6er1 ni6ersit1 estalished under su4se3tion "%# of se3tion 5 shall e a od1 3orporate 1 the

name notified under the said se3tion ha6ing perpetual su33ession and a 3ommon seal+ and ma1 sue and esued 1 the said name.

"2# the ni6ersit1 estalished under su4se3tion "%# of se3tion 5 ma1+ ith the prior appro6al of the State,o6ernment+ affiliate an1 College or other institution or set up more than one 3ampus.>

Se3tion & pro6ides that the ni6ersit1 shall not e entitled to re3ei6e an1 grant or other finan3ialassistan3e from the Central ,o6ernment+ State ,o6ernment or an1 other authorit1 e=3ept for meeting an1

amount toards the fee pa1ale 1 students elonging to so3iall1 disad6antaged or ea@er se3tions ofso3iet1 or for 3ondu3ting an1 stud1 for resear3h purposes+ et3.

2. Se3tion 9 of the A3t enumerates the o;e3ts of the ni6ersit1. Su4 se3tion "%# of Se3tion ) pro6idesthat an appli3ation 3ontaining the Pro;e3t Report to estalish a ni6ersit1 for 3arr1ing out an1 or all of the

o;e3ts enumerated in Se3tion 9 of the A3t shall e made to the State ,o6ernment 1 the sponsoringod1. Su4se3tion "2# of Se3tion ) pro6ides that the Pro;e3t Report shall 3ontain the parti3ulars hi3h

ha6e een enumerated from 3lauses "a# to "m# in the said Su4se3tion. (he Pro;e3t Report is to merel1

indi3ate the a6ailailit1 of the land and also the details of the S3heme for moili?ation of resour3es andgeneration of funds. (he Pro;e3t Report is in the nature of a proposal here some details ha6e to e

furnished regarding the t1pe of 3ourses of stud1 and resear3h to e underta@en in the ni6ersit1 duringthe period not less than ne=t fi6e 1ears+ the nature of fa3ult1 and 3ourses of stud1 proposed to e started+

the 3ampus de6elopment su3h as uilding+ eni6ersit1>

as a topi3 of legislation has not een introdu3ed for the first time in the Se6enth S3hedule of theConstitution ut as alread1 there in the ,o6ernment of India A3t+ here $ntr1 %9 of *ist I related to

/anaras Findu ni6ersit1 and Aligarh -uslim ni6ersit1 and $ntr1 %B of *ist II as edu3ation in3luding

ni6ersities other than those spe3ified in $ntr1 %9 of *ist I. (he framers of the Constitution had the same

3on3ept of >ni6ersit1> in their mind as as there in the ,o6ernment of India A3t hen the1 made therele6ant entries in the Se6enth S3hedule of the Constitution. eeping in 6ie the prin3iples of legislati6epra3ti3e+ the ord >ni6ersit1> should e gi6en the same meaning as it as generall1 understood at the

rele6ant time ha6ing due regard to hat is ordinaril1 treated as emra3ed ithin that topi3 or su;e3t.


16/24

2D. As shon earlier+ ni6ersit1 is a hole od1 of tea3hers and s3holars engaged at a parti3ular pla3e ingi6ing and re3ei6ing instru3tions in higher ran3hes of learning! and as su3h persons asso3iated together

as a so3iet1 or 3orporate od1+ ith definite organi?ation and a3@noledged poers and pri6ileges andforming an institution for promotion of edu3ation in higher or more important ran3hes of learning and

also the 3olleges+ uilding and other propert1 elonging to su3h od1. Other ne3essar1 attriutes of

ni6ersit1 are pluralit1 of tea3hers tea3hing more than one higher fa3ulties and other fa3ilities forimparting instru3tions and resear3h+ pro6ision for residen3e and must ha6e 3ertain standard of instru3tions

pro6iding for graduate and post4graduate le6els of stud1. It pre4supposes e=isten3e of a 3ampus+

3lassrooms+ le3ture theatres+ liraries+ laoratories+ offi3es+ esides some pla1grounds and also sportfa3ilit1 for o6erall de6elopment of personalit1 of the students. Foe6er+ under the pro6isions of the

impugned A3t+ a proposal hi3h is on paper and merel1 gi6es some @ind of a plan or s3heme to e donein future is notified as a ni6ersit1. 7hen the Constitution has 3onferred poer on the State to legislate

on in3orporation of ni6ersit1+ an1 A3t pro6iding for estalishment of the ni6ersit1 must ma@e su3hpro6isions that onl1 an institution in the sense of ni6ersit1 as it is generall1 understood ith all the

infrastru3tural fa3ilities+ here tea3hing and resear3h on ide range of su;e3ts and of a parti3ular le6el

are a3tuall1 done+ a3


17/24

3on3erned. Su3h in3orporation of a ni6ersit1 ma@es it impossile for the ,C to perform its duties andresponsiilities of ensuring 3o4ordination and determination of standards. In asen3e of an1 3ampus and

other infrastru3tural fa3ilities+ the ,C 3annot ta@e an1 measures hatsoe6er to ensure a proper s1llaus+le6el of tea3hing+ standard of e=amination and e6aluation of a3ademi3 a3hie6ement of the students or

e6en to ensure that the students ha6e undergone the 3ourse of stud1 for the pres3ried period efore the

degree is aarded to them.

9%. (he inter se e6aluation of merit of 3andidates is often re


18/24

shos that the rele6ant pro6isions of the A3t ha6e 3ompletel1 stultified the poer of the Parliament under$ntr1 to ma@e pro6ision for 3o4ordination and determination of standards in institutions for higher

edu3ation li@e ni6ersities+ the pro6isions of the ,C A3t and also the fun3tioning of ni6ersit1 ,rantsCommission. Se3tions 5 and of the impugned A3t are+ therefore+ holl1 ultra 6ires the Constitution of

India and are liale to e stru3@ don.

99. r. haan+ learned senior 3ounsel for the petitioners in 7rit Petition 8o.%& of 200)+ has alsopointed out 3ertain other infirmities in the impugned A3t. Se3tion ) pro6ides that a ni6ersit1 ma1 e

estalished for 3arr1ing out >an1 or all> of the o;e3ti6es enumerated in Se3tion 9 of the Adhini1am. (heo;e3ti6es mentioned in 3lauses "%# to "5# are the normal o;e3ti6es of a ni6ersit1. Foe6er+ a

ni6ersit1 3annot e estalished onl1 to pro6ide 3onsultan31 to the industr1 and puli3 organi?ations

3lause "#J or to estalish e=amination 3enters 3lause "D#J or to institute degrees+ diplomas+ 3ertifi3atesand other a3ademi3 distin3tions on the asis of e=amination or an1 other method of e6aluation 3lause

"J. Sin3e su4se3tion "%# of Se3tion ) uses the e=pression >for 3arr1ing out an1 or all of the o;e3ts>+ it iso6ious that a ni6ersit1 3an e estalished onl1 for an1 one of the aforesaid o;e3ti6es. (his is 3learl1 a

3olourale pie3e of legislation eing e1ond the legislati6e 3ompeten3e of the State legislature as the

rele6ant entries in *ist II and *ist III of Se6enth S3hedule of the Constitution do not 3ontemplate 3reationor estalishment of su3h @ind of a ni6ersit1.

9). (he A3t as amended 1 the Chhattisgarh 8i;i shetra Visha6id1ala1a "Sthapana Aur Vini1aman#Sansodhan Adhini1am+ 200) "hereinafter 3alled >the amending A3t>#+ hi3h as pulished in the ,a?ette

on %B.9.200). /1 this amending A3t some pro6isions ere sustituted and some ne pro6isions ereadded. Clauses "e# and ";# inserted in Se3tion 2 read as under :

"e# >main 3ampus> means the 3ampus of the uni6ersit1 here main offi3e of the uni6ersit1 is situated andhere the Vi3e4Chan3ellor and Registrar reside and here not less than three ni6ersit1 (ea3hing

epartmentsS3hools of studies are lo3ated.

";# >Regulator1 Commission> means the Regulator1 Commission estalished under the Adhini1am.>

Se3tions )+ 5+ & and %0 of the amending A3t read as under :

>). or Su4se3tions "%0# and "%%# of Se3tion 9 of the Prin3ipal Adhini1am+ the folloing Su4se3tionsshall e sustituted! namel1:4

>"%0# (o ensure that the standard of degrees+ diplomas+ 3ertifi3ates and other a3ademi3 distin3tions are notloer than those laid don 1 AIC($+ 8C($+ ,C+ -CI+ Pharma31 Coun3il+ and su3h agen31agen3ies

estalished 1 the Central ,o6ernment for regulation of edu3ation and the Regulator1 Commission! and

"%%# (o pursue an1 other o;e3ti6e as ma1 e appro6ed 1 the Regulator1 Commission.>

5. or Su4se3tion "%# of Se3tion ) of the Prin3ipal Adhini1am+ the folloing Su4se3tions shall esustituted! namel1 :4

>"%# "a# An appli3ation 3ontaining the Pro;e3t Report to estalish a uni6ersit1 for 3arr1ing out an1 or allthe o;e3ti6es enumerated in Se3tion 9 of the Adhini1am shall e made to the Regulator1 Commission 1

Sponsoring /od1 alongith fee and su3h form as ma1 e pres3ried + at least one 1ear efore the datefrom hi3h it intends to start the uni6ersit1.

"# (he Sponsoring /od1 shall sumit alongith its appli3ation as per "a# ao6e+

"i# Proof of ha6ing estalished an $ndoment und of Rs.2 3rore!

"ii# Proof of eing in possession of %5 a3res of land+ in 3ase the main 3ampus is proposed to e estalishedithin the -uni3ipal Corporation *imits of Raipur! or 25 a3res of land in 3ase the main 3ampus is

proposed to e estalished elsehere in the State and in addition+ if the land has een otained on lease+


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the period of lease should e at least 90 1ears. In 3ase+ the Sponsoring /od1 does not possess the re

&. or Su4se3tion "%# of Se3tion 5 of the Prin3ipal Adhini1am+ the folloing shall e sustituted! namel1

"%# "a# (he State ,o6ernment on re3eipt of the ad6i3e of the Regulator1 Commission under Su4se3tion

")# of Se3tion ) of the Adhini1am+ ma1 de3lare+ 1 notifi3ation in offi3ial ga?ette+ that the uni6ersit1 isestalished 1 su3h name and ith su3h ;urisdi3tion and lo3ation of main 3ampus+ from su3h date as ma1

e mentioned in the notifi3ation.

"# All su3h notifi3ation issued under Su4se3tion "%# of Se3tion 5 of the Adhini1am prior to 3oming into

for3e of the Chhattisgarh 8i;i shetra Visha6id1ala1a "Sthapana Aur Vini1aman# Sansodhan

Adhini1am 200)+ shall e in3luded as S3hedule 4 I of the Adhini1am and hereafter+ notifi3ation issuedregarding estalishment of a ni6ersit1 under the pro6isions of this Adhini1am + shall form part of the

said S3hedule 4 I in 3hronologi3al order.

"3# All the pro6isions of the Adhini1am shall appl1 to ni6ersities in3luded in S3hedule I.

%0. After Su4se3tion "2# of Se3tion of the Prin3ipal Adhini1am+ the folloing shall e sustituted!

namel1:4

>"2# On its notifi3ation under Su4se3tion "%# of Se3tion 5+ the ni6ersit1 shall estalish its main 3ampus

in the State of Chhattisgarh on the land referred to in Su4se3tion "%# of Se3tion ) and for that purpose

shall 3reate a uilt up area of at least 25+000 S


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Regulator1 Commission for the purpose of ensuring appropriate standards of tea3hing+ e=aminations+resear3h+ prote3tion of the interests of the students and ensuring reasonale ser6i3e 3onditions of

emplo1ees hile ni6ersit1 has full freedom to fun3tion. (he Regulator1 Commission shall fun3tionunder the general 3ontrol of the Visitor and shall 3onsist of a Chairman+ to full time and not e=3eeding

to part4time memers to e appointed 1 the Visitor. Su4 se3tion " of Se3tion 2) pro6ides that it shall

e the dut1 of the Regulator1 Commission to ta@e in 3onsultation ith the ni6ersit1 and other odies3on3erned ith regulator1 fun3tions of the higher edu3ation s1stem in the 3ountr1 su3h as ,C+ AIC($+

8C($+ -CI+ Pharma31 Coun3il and su3h agen31agen3ies estalished 1 the Central ,o6ernment for

regulation of edu3ation+ or su3h steps+ as it 3onsiders ne3essar1 for determination and maintenan3e ofstandards of tea3hing+ e=amination and resear3h in the ni6ersit1.

95. (he amending A3t of 200) does not ma@e an1 appre3iale 3hange in the matter of issuing anotifi3ation for estalishment of a ni6ersit1. nder the amending A3t+ Regulator1 Commission is to e

estalished 1 the Visitor ",o6ernor#. (he appli3ation 3ontaining the Pro;e3t Report shall e made to theRegulator1 Commission one 1ear efore the date from hi3h it intends to start the ni6ersit1 along ith

proof of ha6ing estalished an endoment fund of Rs.2 3rores hi3h shall e used as se3urit1 deposit to

ensure that the ni6ersit1 3omplies ith the pro6isions and fun3tions as per the pro6isions of the A3t. Inaddition proof of eing in possession of %5 a3res of land in 3ase the main 3ampus is proposed to e

estalished ithin the muni3ipal 3orporation limits of Raipur otherise 25 a3res of land has to e

furnished. 7here the land has een otained on lease+ the period of lease should e at least 90 1ears. Itfurther pro6ides that if the sponsoring od1 does not possess the re


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od1 as amended from time to time.

9.B A pri6ate uni6ersit1 shall pro6ide all the rele6ant information relating to the first degree and

post4graduate degreediploma programme"s# in3luding the 3urri3ulum stru3ture+ 3ontents + tea3hing andlearning pro3ess+ e=amination and e6aluation s1stem and the eligiilit1 3riteria for admission of students+

to the ,C on a proforma pres3ried 1 the ,C prior to starting of these programmes.

9B. Regulation 9.9 puts restri3tion on estalishment of a ni6ersit1 outside the State. Regulation 5

pro6ides 3onse


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though $ntr1 92 in *ist II is in general terms dealing ith >in3orporation+ regulation and inding up of3orporations other than those spe3ified in *ist I and ni6ersities>+ ut in3orporation of a 3ompan1 is

entirel1 different from in3orporation of a ni6ersit1 and the1 are 3on3eptuall1 different. Se3tions 9+ 9"%#"i#+ %2+ %9+ 2+ 99 and 9) of the Companies A3t relate to in3orporation of a Compan1. It need not ha6e a

prior usiness and a mere statement of a laful purpose in the -emorandum of Asso3iation is enough. If

a Compan1 is unale to a3hie6e its o;e3ti6e and is unale to 3arr1 on usiness+ the shareholders ma1suffer some finan3ial loss+ ut there is asolutel1 no impa3t on so3iet1 at large. Foe6er+ a ni6ersit1

on3e in3orporated gets a right to 3onfer degrees. A ni6ersit1 ha6ing no infrastru3ture or tea3hing fa3ilit1

of an1 @ind ould still e in a position to 3onfer degrees and there1 3reate a 3omplete 3haos in thematter of 3o4ordination and maintenan3e of standards in higher studies hi3h ould e highl1 detrimental

for the hole nation. A ni6ersit1 ma1+ therefore+ e estalished either 1 the State in e=er3ise of itsso6ereign poer hi3h ould o6iousl1 e through a legislati6e ena3tment. In the 3ase of a pri6ate

ni6ersit1 it is ne3essar1 that it should e a pre4estalished institution for higher edu3ation ith all theinfrastru3tural fa3ilities and or> o33urring in the e=pression >estalished or in3orporated> in Se3tions 2"f#+ 22 and 29 of the ,C A3t

should e read as >and>. Fe has sumitted that the normal meaning of the ord >estalished> is to ring intoe=isten3e and in order to a6oid the situation hi3h has een 3reated 1 the impugned ena3tment here

o6er %%2 ni6ersities ha6e 3ome into e=isten3e ithin a short period of one 1ear of hi3h man1 do notha6e an1 @ind of infrastru3ture or tea3hing fa3ilit1+ it ill e in 3onsonan3e ith the 3onstitutional

s3heme that onl1 after estalishment of the asi3 reoff43ampus 3enter> hi3h means a 3enter of theni6ersit1 estalished 1 it outside the main 3ampus "ithin or outside the State# operated andmaintained as its 3onstituent unit ha6ing the uni6ersit1>s 3omplement of fa3ilities+ fa3ult1 and staff.

Se3tion 2"g# defines >off4shore 3ampus> and it means a 3ampus of the uni6ersit1 estalished 1 it outsidethe 3ountr1+ operated and maintained as its 3onstituent unit+ ha6ing the uni6ersit1>s 3omplement of

fa3ilities+ fa3ult1 and staff. Se3tion 9"B# sa1s that the o;e3t of the ni6ersit1 shall e to estalish main

3ampus in Chhattisgarh and to ha6e the stud1 3enters at different pla3es in India and other 3ountries. In6ie of Arti3le 2)5"%# of the Constitution+ Parliament alone is 3ompetent to ma@e las for the hole or

an1 part of the territor1 of India and the legislature of a State ma1 ma@e las for the hole or an1 part ofthe State. (he impugned A3t hi3h spe3ifi3all1 ma@es a pro6ision enaling a ni6ersit1 to ha6e an

off43ampus 3enter outside the State is 3learl1 e1ond the legislati6e 3ompeten3e of the Chhattisgarh

legislature.

)2. (he amending A3t of 200) 3ame into for3e on %B.9.200). Se3tion )"%4A# hi3h as inserted 1 this

amendment pro6ided that a ni6ersit1 alread1 estalished in the State under the pro6isions of theAdhini1am shall 3ompl1 ith the pro6isions of 3lauses "# to "e# of su4se3tion "%# of Se3tion ) 1 90th


23/24

'une+ 200) or else the notifi3ation issued 1 the ,o6ernment under su4se3tion "%# of Se3tion 5 of theAdhini1am shall e liale to e 3an3elled on the re3ommendations of the Regulator1 Commission. (hese

pro6isions related to 3reation of an endoment fund of Rs.2 3rores and re


24/24

ould not e attra3ted. In the 3urrent s3enario+ students are prepared to go to an1 3orner of the 3ountr1 forgetting good edu3ation. 7hat is ne3essar1 is a large numer of good 3olleges and institutions and not

ni6ersities ithout an1 tea3hing fa3ilit1 ut ha6ing the authorit1 to 3onfer degrees. If good institutionsare estalished for pro6iding higher edu3ation+ the1 3an e 3onferred the status of a deemed ni6ersit1 1

the Central ,o6ernment in a33ordan3e ith Se3tion 9 of ,C A3t or the1 3an e affiliated to the alread1

e=isting ni6ersities. (he impugned A3t has neither a3hie6ed nor is 3apale of a3hie6ing the o;e3tsought to e pro;e3ted 1 the learned 3ounsel as it enales a proposal alone eing notified as a ni6ersit1.

)5. As a 3onse

prof. yashpal and anr. vs. state of chhattisgarh and ors

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