Chattisgarh High Court
Shalini Convent School, Boirdadar vs The State Of Chhattisgarh 168 ... on 27 November, 2017
Author: Sanjay K. Agrawal
Bench: Sanjay K. Agrawal
W.P.(C)No.1001/2016
and other connected cases
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AFR
HIGH COURT OF CHHATTISGARH, BILASPUR
Writ Petition (C) No.1001 of 2016
St. Ann's English Medium School, Gharghoda, P.O. Raigarh (C.G.)
496 001, Through its Principal Sr. Shaly Methew, D/o M.J. Mathew,
aged 45 years, residing at St. Ann's Convent, Gharghoda, Raigarh
(C.G.)
---- Petitioner
Versus
1. The State of Chhattisgarh, Represented by Chief Secretary,
Mantralaya, Raipur (C.G.)
2. District Education Officer, DEO Office, Raigarh District (C.G.)
3. Commissioner, ST & SC Development, Government of
Chhattisgarh, Mantralaya, Raipur (C.G.)
4. The Secretary, Government of Chhattisgarh, School Education
Department, Mantralay, Mahandi Bhavan, New Raipur (C.G.)
5. The Director, Lok Sikshan Sanchalanalaya, Indravati Bhavan, Wing
3, First Floor, New Raipur (C.G.)
6. The Collector, Collectorate, Raigarh (C.G.)
7. Union of India, through the Secretary to Govt., Ministry of Home
Affairs, South Block, New Delhi.
---- Respondents
Writ Petition (C) No.1005 of 2016
Shalini Convent School, Boirdadar, Raigarh (C.G.) 496001,
Through its Principal Sr. Jwala, D/o P.J. Augustine, aged 39 years,
residing at Shalini Bhavan, Boirdadar, Raigarh (C.G.)
---- Petitioner
Versus
1. The State of Chhattisgarh, Represented by Chief Secretary,
Mantralaya, Raipur (C.G.)
2. District Education Officer, DEO Office, Raigarh District (C.G.)
3. Commissioner, ST & SC Development, Government of
Chhattisgarh, Mantralaya, Raipur (C.G.)
W.P.(C)No.1001/2016
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4. The Secretary, Government of Chhattisgarh, School Education
Department, Mantralaya, Mahandi Bhavan, New Raipur (C.G.)
5. The Director, Lok Sikshan Sanchalanalaya, Indravati Bhavan, Wing
3, First Floor, New Raipur (C.G.)
6. The Collector, Collectorate, Raigarh (C.G.)
7. Union of India, through the Secretary to Govt., Ministry of Home
Affairs, South Block, New Delhi.
---- Respondents
Writ Petition (C) No.1007 of 2016
St. Ann's High School, Basanpali, Tamnar, P.O. Raigarh (C.G.),
Through its Principal Sr. Veronica, D/o Gabriel Kalapala, aged 47
years, residing at St. Ann's Convent, Basanpali, Tamnar, Raigarh
(C.G.)
---- Petitioner
Versus
1. The State of Chhattisgarh, Represented by Chief Secretary,
Mantralaya, Raipur (C.G.)
2. District Education Officer, DEO Office, Raigarh District (C.G.)
3. Commissioner, ST & SC Development, Government of
Chhattisgarh, Mantralaya, Raipur (C.G.)
4. The Secretary, Government of Chhattisgarh, School Education
Department, Mantralaya, Mahandi Bhavan, New Raipur (C.G.)
5. The Director, Lok Sikshan Sanchalanalaya, Indravati Bhavan, Wing
3, First Floor, New Raipur (C.G.)
6. The Collector, Collectorate, Raigarh (C.G.)
7. Union of India, through the Secretary to Govt., Ministry of Home
Affairs, South Block, New Delhi.
---- Respondents
AND
Writ Petition (C) No.1006 of 2016
Carmel Convent Senior Secondary School, Laxmipur, Raigarh
(C.G.), Through its Principal Sr. Aruna, D/o S. Swamidorai, aged
58 years, residing at Carmel Convent, Laxmipur, Raigarh (C.G.)
---- Petitioner
W.P.(C)No.1001/2016
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Versus
1. The State of Chhattisgarh, Represented by Chief Secretary,
Mantralaya, Raipur (C.G.)
2. District Education Officer, DEO Office, Raigarh District (C.G.)
3. Commissioner, ST & SC Development, Government of
Chhattisgarh, Mantralaya, Raipur (C.G.)
4. The Secretary, Government of Chhattisgarh, School Education
Department, Mantralaya, Mahandi Bhavan, New Raipur (C.G.)
5. The Director, Lok Sikshan Sanchalanalaya, Indravati Bhavan, Wing
3, First Floor, New Raipur (C.G.)
6. The Collector, Collectorate, Raigarh (C.G.)
7. Union of India, through the Secretary to Govt., Ministry of Home
Affairs, South Block, New Delhi.
---- Respondents
For Petitioners: Dr. P. George Giri and Mr. Kishore Narayan,
Advocates.
For Respondents No.1 to 6 / State: -
Mr. Prasun Kumar Bhaduri, Govt. Advocate.
For Respondent No.7: Mr. B. Gopa Kumar, Assistant Solicitor General of
India.
Hon'ble Shri Justice Sanjay K. Agrawal
Order On Board
27/11/2017
1. The petitioners - educational institutions claiming to be the minority
unaided private educational institutions under Article 30(1) of the
Constitution of India, invoking the writ jurisdiction of this Court
under Article 226 of the Constitution of India, have filed these writ
petitions for enforcement of their fundamental rights guaranteed
under Articles 30, 14 and 19 of the Constitution of India restraining
the State Government from initiating adverse action de-recognising
them and questioning the impugned order directing them to
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produce certificate of religious minority institution by the State
Government failing which the petitioners schools will be de-
recognised for not admitting 25% students as provided in Section
12(1)(c) of the Right of Children to Free and Compulsory Education
Act, 2009 (for short, 'the RTE Act, 2009').
2. Essential facts necessary to adjudicate the plea raised at the Bar
are as under: -
3.1) It is the case of the petitioners that they are the Christian
Minority Unaided Educational Institutes having minority status
certificate issued to them by the National Commission for Minority
Educational Institutions under the National Commission for Minority
Educational Institutions Act, 2004 (for short, 'the NCMEI Act,
2004'). In W.P.(C)Nos.1001/2016 and 1007/2016, the minority
status certificate was granted on 26-5-2011 and in W.P.(C)
Nos.1005/2016 and 1006/2016, the said certificate was granted on
21-1-2015. Thereafter, the Nodal Officer of the RTE i.e. the
Principal of Government Higher Secondary School, Raigarh,
directed the petitioners to admit 25% free seats under the RTE Act,
2009 as per the direction of the District Education Officer, Raigarh,
to which the petitioners replied that the petitioners are the Christian
Minority Unaided Educational Institutes and are exempted from the
provisions of the RTE Act, 2009 and also submitted permanent
minority status certificate granted under the provisions of the
NCMEI Act, 2004, but series of letters were exchanged between
the parties, however, ultimately, on 3-12-2015, finally, notices were
W.P.(C)No.1001/2016
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given to the petitioners to produce minority recognition certificate
issued by an authority of the State Government and / or to admit
students as per the direction of the respondents failing which the
recognition of the schools will be cancelled.
3.2) It is the further case of the petitioners that the District
Education Officer, Raigarh publicly announced that the petitioners
will admit students as per the RTE Act, 2009 from 1 st of April, 2016
by which the petitioners institutions suffered embarrassment and
thereafter, they have directly filed writ petitions before the Supreme
Court and ultimately, withdrawn the same to file writ petitions
before this Court and have filed these writ petitions before this
Court stating that the certificate granted under the NCMEI Act,
2004 is a valid minority status certificate which cannot be ignored
and the provisions of the RTE Act, 2009, would not be applied to
the petitioner institutions.
3.3) Return has been filed by the State / respondents No.1 to 6
stating inter alia that the RTE Act, 2009 has been enacted to give
effect to the provisions contained in Article 21-A read with Article
45 of the Constitution of India which is imperative in nature and as
such, the provisions of the RTE Act, 2009 are mandatory in nature
and the petitioners have even not obtained the necessary
certificate issued by the competent authority of the State
Government and therefore rightly, notice has been issued to the
petitioners institutions on 3-12-2015 directing them to comply the
RTE Act, 2009 failing which the recognition of the schools will be
W.P.(C)No.1001/2016
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cancelled by de-affiliating the schools run by them.
3.4) Rejoinder on behalf of the petitioners has been filed
controverting the allegations made in the return.
3.5) Since common question of law and fact is involved in these
writ petitions, they are being disposed of by this common order.
3. Dr. P. George Giri, learned counsel appearing for the petitioners,
would submit that the petitioners institutions are reputed Christian
Minority Unaided Private Educational Institutions under Article
30(1) of the Constitution of India and they made application for
grant of minority status certificate to the State Government, but the
State Government unnecessarily and unreasonably delayed the
adjudication of the said application leading to filing of application
under the provisions of Section 2(g) read with Sections 11(f) and
12B of the NCMEI Act, 2004 for granting minority status of
educational institution to the petitioners before the National
Commission for Minority Educational Institutions (NCMEI) which
the National Commission for Minority Educational Institutions has
considered and granted in favour of the petitioners insofar as W.P.
(C) Nos.1001/2016 and 1007/2016 on 26-5-2011 and in W.P.(C)
Nos.1005/2016 and 1006/2016 on 21-1-2015, and declared the
petitioners educational institutions to be the minority educational
institutions and therefore they are entitled for grant of minority
status and issued necessary certificate holding that St. Ann's
English Medium School, Gharghoda has been declared as minority
educational institute covered under Section 2(g) of the NCMEI Act,
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2004. Therefore, the State Government cannot ignore it and
cannot direct for grant of certificate by the authorities of the State
Government. He would further submit that the Supreme Court in
the matter of Pramati Educational and Cultural Trust
(Registered) and others v. Union of India and others 1 has
declared the 2009 Act ultra vires to the Constitution as it is made
applicable to minority schools referred in clause (1) of Article 30 of
the Constitution of India. Therefore, the impugned orders passed
by the State Government deserve to be quashed.
4. Mr. Prasun Kumar Bhaduri, learned Government Advocate
appearing for the State/respondents No.1 to 6, would support the
impugned orders. He would submit that firstly, it must be noted
that the expansive provisions of the 2009 Act are intended not only
to guarantee the right to free and compulsory eduction to children,
but to set up an intrinsic regime for providing the right to education
to all children by providing the required infrastructure and
compliance with norms and standards. Secondly, he would submit
that unlike other fundamental rights, the right to education places a
burden not only on the State, but also on the parent/guardian of
every child. The Constitution directs both burdens to achieve one
end: the compulsory education of children free from the barriers of
cost, parental obstruction or State inaction. Thus, Articles 21A and
51A(k) of the Constitution of India balance the relative burdens on
the parents and the State. Thus, the right to education envisages a
reciprocal agreement between the State and the parents and it
1 (2014) 8 SCC 1
W.P.(C)No.1001/2016
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places an affirmative burden on all stakeholders in our civil society.
Thirdly, the right to establish an educational institution has now
been recognised as a fundamental right within the meaning of
Article 19(1)(g). This view is enforced by the opinion of the
Supreme Court in the matters of T.M.A. Pai Foundation v. State
of Karnataka2 and P.A. Inamdar v. State of Maharashtra 3 that all
citizens have a right to establish and administer educational
institutions under Articles 19(1)(g) and 19(2) of the Constitution of
India but that right is subject to the provisions of Articles 19(6) and
26(a). The constitutional obligation of the State to provide for free
and compulsory education to the specified category of children is
coextensive with the fundamental right guaranteed under Article
19(1)(g) to establish an educational institution. Lastly, the
fundamental right to establish an educational institution cannot be
confused with the right to ask for recognition or affiliation. The
exercise of a fundamental right to establish and administer an
educational institution can be controlled in a number of ways.
Indeed, matters relating to the right to grant of recognition and/or
affiliation are covered within the realm of statutory right, which,
however, will have to satisfy the test of reasonable restriction.
Lastly, he would submit that the impugned order is unexceptionable
and the writ petitions deserve to be dismissed.
5. I have heard learned counsel for the parties and considered the
rival submissions made herein-above and also gone through the
2 (2002) 8 SCC 481
3 (2005) 6 SCC 537
W.P.(C)No.1001/2016
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records with utmost circumspection.
6. The first question is as to whether the petitioner institution is a
minority educational institution entitled to the privilege conferred
under Article 30(1) of the Constitution of India.
7. The writ petitioners in this case made an application to the State
Government for grant of certificate / grant of minority status
certificate which remained pending, as the Commissioner, Tribal
Development / the Director, Tribal Welfare is the competent
authority, but the certificate was not granted leading to filing of
application by the petitioners before the National Commission for
Minority Educational Institutions under the NCMEI Act, 2004.
8. The NCMEI Act, 2004 has been enacted to constitute a National
Commission for Minority Education Institutions and to provide for
matters connected therewith or incidental thereto. Section 2(g) of
the NCMEI Act, 2004 defines Minority Educational Institution which
states as under: -
"Minority Educational Institution" means a college or an
educational institution established and administered by
a minority or minorities;
9. Likewise, Section 11(f) of the NCMEI Act, 2004 is one of the
functions of the Commission which states as under: -
"11. Functions of Commission.--Notwithstanding
anything contained in any other law for the time being
in force, the Commission shall--
*** *** ***
(f) decide all questions relating to the status of any
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institution as a Minority Educational Institution and
declare its status as such;"
10. Section 12B of the NCMEI Act, 2004 is power and jurisdiction of
the Commission to decide on the minority status of an educational
institution. Sub-section (1) of Section 12B of the NCMEI Act, 2004,
states as under: -
"12B. Power of Commission to decide on the
minority status of an educational institution.--(1)
Without prejudice to the provisions contained in the
National Commission for Minorities Act, 1992 (19 of
1992), where an authority established by the Central
Government or any State Government, as the case
may be, for grant of minority status to any educational
institution rejects the application for the grant of such
status, the aggrieved person may appeal against such
order of the authority to the Commission."
11. A focused perusal of the aforesaid provisions would show that one
of the functions of the National Commission for Minority
Educational Institutions is to adjudicate all questions relating to the
status of any institution and to make a declaration to that effect that
particular educational institution is a minority educational institution.
Section 12B of the NCMEI Act, 2004 is power of the Commission to
take decision on the minority status of an educational institution in
case where such an application is rejected by the State
Government or the Central Government, as the case may be.
12. This would bring me to the facts of the present case in hand. In the
instant case, admittedly, temporary minority status certificate was
granted to the petitioners for one year on 28-11-2008, but it is the
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case of the petitioners that application for permanent minority
status certificate remained pending undetermined and it was kept
undecided unnecessarily which led to filing of application before the
National Commission for Minority Educational Institutions and the
Commission considered and finally, granted minority status
certificate under the provisions of the NCMEI Act, 2004 on 26-5-
2011 in one case and similar in another case on 21-1-2015. The
certificate so granted has not been challenged by the State
Government and that certificate has attained finality in absence of
challenge laid in a duly constituted proceeding under the NCMEI
Act, 2004.
13. The petitioners produced the certificate of minority educational
institution granted by the National Commission for Minority
Educational Institutions before the State Government and its
authorities, but the District Education Officer has ignored the same
holding that in order to avail the benefit under Article 30(1) of the
Constitution of India, the petitioners must produce the certificate
issued by the State authorities i.e. by the Director, Department of
SC & ST. Once certificate has been issued by the Commission
which is competent to issue certificate under the NCMEI Act, 2004,
the State Government and its authorities cannot compel the
petitioners to get certificate from an authority who is appointed by
the order of the Government, as the statutory authority under the
NCMEI Act, 2004 has granted minority status certificate to the
petitioners and the same is binding on the State Government.
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Therefore, the certificate granted by the authority under the NCMEI
Act, 2004 will prevail and is binding on the State Government and
the State Government or the State authorities cannot ignore the
certificate and the declaration made as a minority educational
institution holding it to be covered by Section 2(g) of the NCMEI
Act, 2004, unless it is set aside in accordance with the NCMEI Act,
2004 by the authority having jurisdiction. Therefore, it is held that
the petitioners are minority educational institutions covered under
Section 2(g) of the NCMEI Act, 2004.
14. Now, the question would be whether the RTE Act, 2009, would be
applicable to the petitioners and they are bound to admit students
to the extent of 25% as provided in Section 12(1)(c) of the RTE Act,
2009.
15. Section 12(1)(c) of the RTE Act, 2009 states as under: -
"12. Extent of school's responsibility for free and
compulsory education.--(1) For the purposes of this
Act, a school,--
*** *** ***
(c) specified in sub-clauses (iii) and (iv) of clause (n)
of Section 2 shall admit in Class I, to the extent of at
least twenty-five per cent of the strength of that
class, children belonging to weaker section and
disadvantaged group in the neighbourhood and
provide free and compulsory elementary education
till its completion:"
16. The principles of law laid down by the Supreme Court in the matter
of Society for Unaided Private Schools of Rajasthan v. Union
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of India and another4 in this regard are as under: -
"64. Accordingly, we hold that the Right of Children to
Free and Compulsory Education Act, 2009 is
constitutionally valid and shall apply to the following:
(i) a school established, owned or controlled by the
appropriate Government or a local authority;
(ii) an aided school including aided minority
school(s) receiving aid or grants to meet whole or
part of its expenses from the appropriate
Government or the local authority;
(iii) a school belonging to specified category; and
(iv) an unaided non-minority school not receiving
any kind of aid or grants to meet its expenses from
the appropriate Government or the local authority."
17. Correctness of the aforesaid judgment was doubted and ultimately,
the matter was referred to a Constitution Bench in the matter of
Pramati Educational and Cultural Trust and others v. Union of
India and another5, and ultimately, the Constitution Bench in
Pramati Educational and Cultural Trust (Registered) (supra)
answered the issue and held that "the 2009 Act insofar it is made
applicable to minority schools referred in clause (1) of Article 30 of
the Constitution is ultra vires the Constitution" and observed as
under: -
"54. Under Article 30(1) of the Constitution, all
minorities, whether based on religion or language, shall
have the right to establish and administer educational
institutions of their choice. Religious and linguistic
4 (2012) 6 SCC 1
5 (2013) 5 SCC 752
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minorities, therefore, have a special constitutional right
to establish and administer educational schools of their
choice and this Court has repeatedly held that the
State has no power to interfere with the administration
of minority institutions and can make only regulatory
measures and has no power to force admission of
students from amongst non-minority communities,
particularly in minority schools, so as to affect the
minority character of the institutions. Moreover, in
Kesavananda Bharati v. State of Kerala 6 Sikri, CJ., has
even gone to the extent of saying that Parliament
cannot in exercise of its amending power abrogate the
rights of minorities. To quote the observations of Sikri,
C.J. in Kesavananda Bharati v. State of Kerala (supra):
(SCC p. 339, para 178)
"178. The above brief summary of the work of
the Advisory Committee and the Minorities Sub-
Committee shows that no one ever contemplated
that fundamental rights appertaining to the
minorities would be liable to be abrogated by an
amendment of the Constitution. The same is true
about the proceedings in the Constituent Assembly.
There is no hint anywhere that abrogation of
minorities' rights was ever in the contemplation of
the important members of the Constituent
Assembly. It seems to me that in the context of the
British plan, the setting up of Minorities Sub-
Committee, the Advisory Committee and the
proceedings of these Committees, as well as the
proceedings in the Constituent Assembly mentioned
above, it is impossible to read the expression
'Amendment of the Constitution' as empowering
Parliament to abrogate the rights of minorities."
(emphasis supplied)
Thus, the power under Article 21-A of the Constitution
vesting in the State cannot extend to making any law
which will abrogate the right of the minorities to
establish and administer schools of their choice.
6 (1973) 4 SCC 225
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55. When we look at the 2009 Act, we find that
Section 12(1)(b) read with Section 2(n) (ii) provides
that an aided school receiving aid and grants, whole or
part, of its expenses from the appropriate Government
or the local authority has to provide free and
compulsory education to such proportion of children
admitted therein as its annual recurring aid or grants so
received bears to its annual recurring expenses,
subject to a minimum of twenty-five per cent. Thus, a
minority aided school is put under a legal obligation to
provide free and compulsory elementary education to
children who need not be children of members of the
minority community which has established the school.
We also find that under Section 12(1)(c) read with
Section 2(n)(iv), an unaided school has to admit into
twenty-five per cent of the strength of Class I children
belonging to weaker sections and disadvantaged
groups in the neighbourhood. Hence, unaided minority
schools will have a legal obligation to admit children
belonging to weaker sections and disadvantaged
groups in the neighbourhood who need not be children
of the members of the minority community which has
established the school. While discussing the validity of
clause (5) of Article 15 of the Constitution, we have
held that members of communities other than the
minority community which has established the school
cannot be forced upon a minority institution because
that may destroy the minority character of the school.
In our view, if the 2009 Act is made applicable to
minority schools, aided or unaided, the right of the
minorities under Article 30(1) of the Constitution will be
abrogated. Therefore, the 2009 Act insofar it is made
applicable to minority schools referred in clause (1) of
Article 30 of the Constitution is ultra vires the
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Constitution. We are thus of the view that the majority
judgment of this Court in Society for Unaided Private
Schools of Rajasthan v. Union of India (supra) insofar
as it holds that the 2009 Act is applicable to aided
minority schools is not correct.
56. In the result, we hold that the Constitution
(Ninety-third Amendment) Act, 2005 inserting clause
(5) of Article 15 of the Constitution and the Constitution
(Eighty-Sixth Amendment) Act, 2002 inserting Article
21-A of the Constitution do not alter the basic structure
or framework of the Constitution and are
constitutionally valid. We also hold that the 2009 Act is
not ultra vires Article 19(1)(g) of the Constitution. We,
however, hold that the 2009 Act insofar as it applies to
minority schools, aided or unaided, covered under
clause (1) of Article 30 of the Constitution is ultra vires
the Constitution. Accordingly, Writ Petition (C)
No.1081 of 2013 filed on behalf of Muslim Minority
Schools Managers' Association is allowed and Writ
Petition (C) Nos.416 of 2012, 152 of 2013, 60, 95, 106,
128, 144-45, 160 and 136 of 2014 filed on behalf of
non-minority private unaided educational institutions
are dismissed. All IAs stand disposed of. The parties,
however, shall bear their own costs."
18. Thus, the Constitution Bench has clearly and unequivocally held
that the RTE Act, 2009 insofar it is made applicable to minority
schools referred in clause (1) of Article 30 of the Constitution is
ultra vires the Constitution. Therefore, the RTE Act, 2009 is not
applicable to the minority educational institutions referred in clause
(1) of Article 30 of the Constitution of India. It is held accordingly.
19. A Constitution Bench of the Supreme Court, as back as in the year
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1958, speaking through S.R. Das, C.J., In re The Kerala
Educational Bill, 19577 while recognising right of minorities to
establish and maintain educational institutions very pertinently and
further holding that State has no right to interfere with the minority
character of the educational institution, held as under: - (AIR p.
985-86, paras 32 and 34)
"(32) ... There is, no doubt, no such thing as
fundamental right to recognition by the State but to
deny recognition to the educational institutions except
upon terms tantamount to the surrender of their
constitutional right of administration of the educational
institutions of their choice is in truth and in effect to
deprive them of their rights under Art. 30(1). We
repeat that the legislative power is subject to the
fundamental rights and the legislature cannot indirectly
take away or abridge the fundamental rights which it
could not do directly and yet that will be the result if the
said Bill containing any offending clause becomes law.
...
(34) ... There can be no manner of doubt that our Constitution has guaranteed certain cherished rights of the minorities concerning their language, culture and religion. These concessions must have been made to them for good and valid reasons. Article 45, no doubt, requires the State to provide for free and compulsory education for all children, but there is nothing to prevent the State from discharging that solemn obligation through Government and aided schools and Art. 45 does not require that obligation to be discharged at the expense of the minority communities. 7 A.I.R. 1958 SC 956 W.P.(C)No.1001/2016 and other connected cases Page 18 of 19 So long as the Constitution stands as it is and is not altered, it is, we conceive, the duty of this Court to uphold the fundamental rights and thereby honour our sacred obligation to the minority communities who are of our own. ..."
20. Thus, the provisions of the RTE Act, 2009 shall not be applicable to minority educational institutions under Article 30(1) of the Constitution of India. Since the petitioners institutions have been declared and are granted the status of minority institution by the NCMEI, the provision contained in Section 12(1)(c) of the RTE Act, 2009 will not be applicable to them and they are not required to admit 25% students from weaker section of society. Accordingly, the orders passed by the District Education Officer (Annexure P-1) are hereby quashed.
21. The writ petitions are allowed to the extent sketched herein-above. No order as to cost(s).
Sd/-
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