Holding

The West Bengal Land Reforms Act, 1955, its 1972 amendment and the 1977 proviso are constitutionally valid and cannot be struck down.

Summary

The petitioners challenged the West Bengal Land Reforms Act, 1955 and its amendments of 1972 and 1977, alleging violations of Articles 14 and 19 of the Constitution and claiming the provisions were arbitrary, discriminatory and unreasonable. The Court examined whether the Acts, placed in the Ninth Schedule before 24 April 1973, were immune from judicial review, and considered the validity of sub‑sections (3), (4) and (5) of Section 20B which deny a tenant the right to resume personal cultivation when a bargadar voluntarily surrenders the land. The Court also evaluated the 1977 proviso requiring the tenant or a family member to reside in the village for the greater part of the year, and its impact on the right to move and to pursue any occupation. It held that the Acts and the proviso are constitutionally valid and cannot be struck down, noting that the harsh provisions of Section 20B are protected by the Ninth Schedule, though the legislature may amend them. Consequently, all writ petitions were dismissed without costs.

Issues considered

Whether the West Bengal Land Reforms Act, 1955 and its amendments violate Article 14 of the Constitution.
Whether sub‑sections (3), (4) and (5) of Section 20B of the 1955 Act are arbitrary and discriminatory, infringing Article 14.
Whether the 1977 proviso and explanation to Section 2(8) of the 1955 Act infringe Articles 19(1)(e) and 19(1)(g) and are unreasonable restrictions.
Whether the Acts, being placed in the Ninth Schedule prior to 24 April 1973, are immune from challenge under Article 31B.
Whether the residence requirement for the greater part of the year is a reasonable restriction in public interest.

Legislation cited

Constitution of Indias. Article 14, s. Article 19(1)(e), s. Article 19(1)(g), s. Article 31B
West Bengal Land Reforms Act, 1955s. 14K, s. 16, s. 17, s. 20B(3), s. 20B(4), s. 20B(5), s. 2(2), s. 2(8) proviso, s. 49
West Bengal Land Reforms (Amendment) Act, 1972s. 20B(3), s. 20B(4), s. 20B(5)
West Bengal Land Reforms (Amendment) Act, 1977s. 2(8) proviso, s. Explanation to 2(8)

Subjects

Land reformsNinth ScheduleArticle 14Article 19ReasonablenessTenancyBargadarConstitutional validityAgrarian reform

Judgment

950

A SRI SRI KALIMATA THAJ(URANI & SRI SRI RAGHUNATH
JEW & ORS. ETC.
v.
UNION OF INDIA & ORS.

B February 20, 1981
[S. MURTAZA FAZAL ALI AND A. VARADARAJAN, JJ.]

West Bengal Land Refornzs Act, 1955, S. 2(8) Proviso and Explanation, S.
20B(3), (4) and (5); West Bengal Land Reforms (Amendment) Act, 1972 &
U'e.H Bengal Land Reforms (Ame11dn11ent) Ac1, 1977-Constitutional validity of. ~
c
Constitution of India, 1950, Articles 14, 19(l)(e), (g) and Nimh Schedule
Entry Nos. 60 and 81-Violation of Fundamental Rights-Complaint of-Court .
to determine whether restrictions contain quality of reasonableness.

The West Bengal Land Reforms Act, 1955 permitted a tenant (land-holder}
to get the land cultivated by a bargadar, on the basis that the bargadar would
D share the produce, and the Act contained provisions for enforcement of the right
of the tenant to get such share. Section 17 permitted the tenant to terminate the
cultivation of the land by a bargadar and resume possession for his own cultiva-
tion on certain contingencies, one of them being that he requires it bona fide for
personal cultivation.

The West Bengal Land Reforms (Amendment) Act, 1972 provided for the
E reduction in tho ceiling area of the tenant, and incorporated sub-sections (3), (4)
and (5) of section 20B of the 1955 Act, which provided that where the bargadar
had voluntarily surrendered or abandoned the cultiYation of the land, the facility
of cultivating the land personally by the tenant should be denied to him.

The West Bengal Land Reforms (Amendment) Act 1977 inserted a Provis<>
and an Explanation to clause (8) of section 2 of the 1955 Act, which provided
P that a person or member of his family should reside in the greater part of the
year in the locality where the land is situated and the principal source of his in- \
come is derived from the land and that 'family' shall have the same meaning as •-
in clause (c) of section 14.

The petitioners in their writ petitions to this Cou1t assailed : ( 1) The West
Bengal Land Reforms Act, 1955 as also amendments made to the said Act uptO'
G 1977, contending that the 1955 Act \Vas constitutionally invalid and that the
Amendment Act of 1972 was in the nature of a Ceiling Act prescribing a parti-
cular ceiling for the area of the land which should be retained by the tenant and
that sub-sections (3), (4) and (5) of s. 20B of the 1955 Act were violative
of Article 14 of the Constitution, as being discriminatory and arbitrary
Once the tenant was given the right of personal cultivation and was permitted to
get the land cultivated by a bargadar on the basis. that the bargadar would share
H the produce, there was no warrant for not allowing the tenant to resume the land
where a bargadar had voluntarily surrendered or abandoned the land and to deny
the right of cultivating the land personally by the tenant, and (2) the Provis<>
KALIMATA THAKURANI v. UNION 951

and the Explanation to section 2 of the 1955 Act deprive the petitioners of their A
rights guaranteed under Article 19(1) (e) and (g) of the Constitution in as much
as it prevents them from either going to or residing in any other place in India
and places a serious curb on their right to carry on an occupation other than
agriculture.

On behalf of the respondents it was submitted that the rigour of sub-sections
(3) and (4) can be softened if clause (d) of section 17 is read down and inter- B
preted in a way as to permit a tenant to resume the land under clause (d) of
section 17 if the bargadar voluntarily surrenders or abandons the land.

Dis.missing the writ petitions :

HELD: l(i). The West Bengal Land Reforms Act, 1955 including the
Amendment Act of 1972 and the proviso introduced by the Amendment Act of C
1977 are constitutionally valid. [961 G]

In the· instant case the 1955 Act and the Amendment Act of 1972 having been
added to the Ninth Schedule as Entry Nos. 60 and 81 prior to April 24, 1973,
are immune fron1 challenge as being violative of Part III of the Constitution.
[954 Al

Waman Rao & Ors. v. Union of India & Ors., AIR 1981 SC 271, referred to. 0
(ii) Clauses (a), (b) and (c) of sub-section (1) of section 17 of the 1955
Act are the only grounds on which a tenant can get the land back for his per~
sonal cultivation. The -'Piltingency where the bargadar voluntarily surrenders
or abandons the land is neither mentioned, nor directly or indireCtly contemplated
by them. The contention of the respondent cannot be accepted for it would
introduce something into section 17 \Vhich is not there and this is diametrically E
opposed to the well-known canons of interpretation. [956 D-E)

(iii) There is no logical justification for the provisions of sub-sections (3) and
(4) of section 20B. When once the cultivator chooses to bring a bargadar on
the ]and the interest of the bargadar is protected and has been made heritable.
But when the bargadar on his own volition surrenders or abandons the land~
there is no reason why the tenant should not be allowed to resume cultivation and p
instead be compelled to get the land cultivated by some other person nominated
by the authority concerned under section 49 of the 1955 Act. This provision,
therefore, appears to be extremely harsh and works serious injustice to the rights
of the tenants particularly after the ceiling area of the tenant has been consider-
ably reduced by the Amendment Act of 1972. [956 F-G]

(iv) Though the provisions of sub-sections (3), (4) and (5) of section 20B G
perilously border on arbitrariness and a-mount to serious curbs on the funda-
mental right of the cultivator to pursue his occuption, they cannot be struck
down because thev are contained in the Amendment Act of 1972 which has
been placed in th~ Ninth Schedule prior to April 24, 1973. It will, however, be
for the legislature which is the best judge of the needs of its people to give, a
suitable relief to the tenant and soften the rigours of these harsh provisions.
[957 C-Dl H
(2)_ The object of the proviso is to safegu&rd the interest of the tenant him-
self S•.1 that he may give wholehearted attention to the personal cultivation of
952 SUPREME COURT REPORTS [1981] 2 S.C.R.

the land. The proviso does not debar him from following any other occupation
but once a tenant wants to have the land to himself for personal cultivation he
must elect whether to pursue the profession of cultivation or some other occu-
pation. Thus, even though there is some amount of restriction both on the
right of the petitioners to reside or follow any other occupation, such a restric-
tion cannot be said to be arbitrary or unreasonable. [958 C, E-Fl

In the instant case the restriction does not amount to complete deprivation
of the right of the tenant to reside elsewhere' because the words 'for the greater
part of the year' leave sufficient scope to the tenant to residei elsewhere for a part
of the year if he so desires. It is not necessary that the. tenant should himself
reside in the viilage for the greater part of the year. It is sufficient if any
member of the family which includes his wife, unmarried adult, married adult,
minor son and so on remains in the village. This would amount to substantial
·C compliance of the conditions of the proviso. The restriction, therefore, is
partial and in public interest. [958 G, 959 DJ

(3) Whenever a complaint of violation of fundamental rights is made the
Court has to determine ~·hether or not the restrictions imposed contain the
quality of reasonableness. In assessing these factors a doctrinaire approach
should nut be made but the essential facts and realities of life have to be duly
D considered. Our Constitution aims at building up a socialist state and the csta-
biishment of an egalitarian society and if reasonable restrictions are placed on
the fundamental rights in public interest, they can be fully justified in law.
[959 F-G]

State o! A1adra~ v. Jr. G. Row, [1952] SCR 597, referred to.
E (4) As the proviso operates equally to all the tenants governed by it no
question of discrimination arises. ·[961 F]

ORIGINAL JURISDICTION: Writ Petition Nos. 1345, 1635/79, 458,
935. 1418 and 1692/80.
Under Article 32 of the Constitution.
F
Sukumar Ghosh for the Petitioners in WP No. 1345/79.
S. N. Kacker, Govinda Mukhoty and Rathin Das for the Respon-
dent in WP No. 1345/79.
P. Keshva Pillai for the Petitioner in WP No. 1635/79.
G Rathin Das for Respondent No. 2 and Ors. In WP No. 1635/79.
Bimal Kumar Datta, Mrs. L. Arvind and A. K. Sen Gupta for the
Petitioner in WP No. 458/80.
S. N. Kacker and Rathin Das for Respondent No. 2 and Ors.
in WP No. 458/80.
H
S. C. Majumdar, Bimal Kumar Datta, Mrs. L. Arvind and A. K.
Sen for the Petitioner in WP No. 935/80.
KAL!MATA THAKURANI v. UNION (Fazal Ali, J.) 953

Sripal Singh for the Petitioners in WP No. 1418 of 1980 and A
,1692/80.
Rathin Das !or Respondent Nos. 2 and Ors. in WP Nos. 935,
1418 & 1692/80.

The Judgment of the Court was delivered by B

FAZAL ALI, J. These petitions under Article 32 of the
Constitution have been filed in order to challenge the vires of the West
Bengal Land Reforms Act, 1955 (hereinafter referred to as the '1955
Act' j as also various amendments made to the said Act upto 1977.
The first plank of argument related to the constitutional validity of the c
1955 Act. The second plank of argument was confined to the validity
. of the West Bengal Land Reforms (Amendment) Act, 1972 (herein-
after referred to as the 'Amendment Act of 19720 which was in the
nature of a ceilhig Act prescribing a particular ceiling of the area of
land which,,sould be retained by the tenant. So fur as the Ceiling Act,
viz., the Amendment Act of 1972 is concerned, it is conceded by the D
counsel for the petitioners that the constitutional validity of the afore-
said Act is clearly concluded by a recent decision of this Court in
Waman Rao & Ors. v. Union of India & Ors.(1) where a Constitution
Bench of this Court rejected the various grounds of challenge in respect
of the constitutionality of various ceiling Acts passed by the. States con-
cerned. In view of this decision the learned counsel for the petitioners E
was fair enough to state that he does not want to press his contention
regarding the constitutional validity of the Ceiling Act. Similarly, tho
learned counsel for the petitioners fairly conceded that as the 1955
Act, alongwith its amendments upto 1972, has been placed in the
Ninth Schedule of the Constitution, it was immune from challenge and
F
was saved by the protective umbrella contained in Art. 3 lB of the
·Constitution. In this cQrulection, this position was made absolutely
·cl.ear in Wanum Rao's case (supra) where this Conrt observed as
follcw~ :

"Thus, in so far as the validity of Article 3 lB read with
the Ninth Schedule is concerned, we hold that all Acts and G
Regulations included in the Ninth Schedule prior to April
24, 197 3 will receive the full protection of Article 3 lB. Those
laws and regulatians will not be open to challenge on the
ground that they are inconsistent with or take away or
abridge any of the rights conferred by any of the provisions
of Part III of the Constitution." H
(l) AIR 1981 SC 271
954 SUPREME COURT REPORTS [1981] 2 S.C.R.

A
In the instant case, it is clear that the 1955 Act as also the Amend-
ment Act of 1972 were added to the Ninth Schedule, being entry Nos.
60 and 81, prior to April 24, 1973. In these circumstances, it is
manifest that the aforesaid Acts arc completely immune from challenge
on the ground that they are violative of any of the rights enshrined in
Part III of the Constitution. The learned counsel for the petitioners,
B
therefore, was fully justified in making the concession before us.

The argument of the learned counsel for the petitioners in W.P.
No. 1345 of 1979, which has been adopted by the counsel for the
petitioners appearing in other petitions, centres round the validity of-
c (1) The West Bengal Land Reforms (Amendment) Act, 1977 (pub-
lished in the Gazette Extraordinary on 3-2-1978), and (2) Section
20B, sub-sections (3), ( 4) and ( 5), of the 1955 Act. So far as the
challenge to the constitutional validity of this section was concerned,
it was confined only on the ground that the said sub-sections were
violative of Art. 14 of the Constitution of India as being discriminatory
D and arbitrary.

It was contended that once the land holder, viz., the tenant was
given the right of personal cultivation and was permitted to get the
land cultivated by a Bargadar on the basis that the bargadar would
share half the produce, there was no warrant for not allowing the
E tenant to resume the land where the bargadar had voluntarily sur-
rendered or abandoned the land. In order to consider this argument,
it may be necessary to examine the status of the bargadar under the
1955 Act. Section 2(2) defines bargadar thus:

"'Bargadar' means a person who under the system gene-
F rally known as adhi, barga or bhag cultivates the land of
another person on condition of delivering a share of the
produce of such land to that person and includes person who
under the system generally known as kisani cultiv~tes the
land of another person on condition of receiving a share of
the produce of such land from that person."
G
Section 16 of the 1955 Act provides that where the tenant brings
in a bargadar on the land, the produce of the land may be shared in
the proportion of 50 : 50 or 75: 25. There are also provisions
in the 1955 Act for enforcement of the right of the tenant to get his
share of the produce from the bargadar which have not been challeng-
H ed before us. It would be seen that s. 17 permits the cultivator to·
terminate the cultivation of the land by a bargadar and resume posses-
sion under his own cultivation if the conditions mentioned in clauses·
KALIMATA THAKURANI v. UNION (Fazal Ali, J.) 955

(a), (b) and (d) of sub-section (1) of s. 17 are satisfied. Clause A<
(d) may be extracted thus : -
"That the person owning the land requires it bona-fide
for bringing it under personal cultivation."
Thus, the cultivator has a right to get back the land for personal
cultivation if he requires it for his bona fide use and proves the same B'
to the satisfaction of the authority appointed under s. 17 (1) .
It was argued by the counsel for the petitioners that on a parity of
reasoning contained in s. 17, there was no reason why-·where the
bargadar had voluntarily surrendered or abandoned the land-the faci-
lity of cultivating the land personally by the tenant should be denied C
to him. Sub-sections (3), (4) and (5) of s. 20B of the 1955 Act
run thus. :
''(3) If such oflicer or authority determines that the
bargadar had not voluntarily surrendered or abandoned the
cultivation of the land which was being cultivated by him as
such and what he had been compelled by force or otherwise D·
to surrender or abandon the cultivation of such land, such
officer or authority shall restore the bargadar to the
cultivation of the land, or where the bargadar is not avail-
able or is not willing to be restored to the cultivation of such
land, the person whose land was so cultivated shall not re-
sume personal cultivation Of the land but he may, with the E
permission of such officer or authority, get the land cultivat-
ed by any person, referred to in section 49, who is willing
to cultivate the land as a bargadar.
( 4) If such ofliccr or authority determines that the bar-
gadar had voluntarily surrendered or abandoned the culti- F
vation of the land which was cultivated by him as such, the
person whose land was being so cultivated shall not resume
personal cultiv-ation of such land but he may, with the per-
mission of such officer or authority, have the land cultivated
by any person, referred to in section 49, who is willing to
cultivate the land as a bargadar. G
(5) Any contravention of the provisions of sub-section
(3) or sub-section (4) shall be an offence punishable with
imprisonment for a term which may extend to six months,
o~ with fine which may extend to one thousand rupees, or
with both."
t H
Sub-sections (3) and ( 4) prescribe the procedure which is to be
adopted where a bargadar voluntarily surrenders or abandons the
956 SUPREME CO\JRT REPORTS (1981] 2 S.C.R.

A cult!vation of the land. Under these provisions, the tenant is not
allowed to resume personal cultivation but has to get the land culti-
vated by some other person with the permission of the officer or
authority concerned.
Realising the force of the argument, Mr. S. N. Kacker, appear·
ing for the State of West Bengal, with his usual persuasiveness submitteJ
that sub-sections (3) and (4) are extremely harsh but the rigoms
of these sub-sections can be softened if we read down s. 17(d) amt
interpret it in such a way as to permit a tenant to resume the land
under clause ( d) of s. 17 if the Bargadar voluntarily surrenders or
abandons the land. We are, however, unable to agree with this
c argument because it will amount not only to distorting and mis-
interpreting clause ( d) but also to causing serious violence to its plain
language, which cannot be done.
It would appear that clauses (a), (b) and (c) of sub--section
(1) of s. 17 of the 1955 Act are the only grounds given on which
D a tenant can get the land back for his personal cultivation. The
contingency where the bargadar voluntarily surrenders or abandons
the land is neither mentioned in clauses (a), (b) and (c) nor is
directly or indirectly contemplated by them. In· these circumstances.
if we accept the contention of Mr. Kacker it would amount to intro-
ducing something into s. 17 which is not there and this is
E diametrically opposed to the well-known canons of interpre-
tation.
We are, however, constrained to observe that there does not
appear to be any logical justification for the provisions of sub-sections
(3) and (4) of s. 20B.
F
It is understandable that when once the cultivator chooses to
bring a bargadar on the land, the interest of the bargadar should be
duly protected and has been made heritable. So far, there can be
no objection and such a course is in consonance with the object of
the statute. But when the Bargadar on his own volition surrenders
G or abandons the land, there is no reason why the tenant should not
be allowed to resume cultivation and instead be compelled to get the
land cultivated by some other person nominated by the authority
concerned under s. 49 of the 1955 Act. This provision there-
fore appears to us to be extremely harsh and works serious
injustice to the rights of the tenants particularly after the
H ceiling area of the tenant has been considerably reduced by the
Amendment Act of 1972. Thus, the tenant having a small area
guaranteed to him for his unit, he should have at least fuller and
KALIMATA THAKURANI v. UNION (Fazal Ali, J.) 957

more eft:~cCve rights to get that area cultivated by him or even by
a bargadar of his choice subject to resuming the same, if the bargadar
surrenders or abandons the land. The amendment doubtless recog-
nisei; the right of the ownership of the tenant within the ceiling area
and yet to deny him the r;ght of resuming cu!tivation of the land
from the bargadar inducted by him after the bargadar voluntarily
surrenders or abandons the same and forcing or imposing someone H
else to cultivate the land on behalf of the tenant appears to be con-
trary to the very tenor and spirit which sections 17 and 20B of the
1955 Act seem to subserve. Unfortunately, however, though the pro-
visions of sub-sections (3), (4) [and (5) of s. 20B, which is only
I
a. penal section] perilously border on arbitrariness and amounts to
c
~
serious ~urbs on the fundamental right of the cultivator to pursue
his occ •pation, we cannot however strike down these provlS!ons
because they are contained in the Amendment Act of 1972 which
has been placed in the Ninth Schedule prior to April 24, 1973, and
therefore fall within the protective umbrella and are immune from
challenge. It will, however, be for the leg;slature which is the best D
judge of the needs of its people to give a suitable relief to the tenant
and soften the rigours of the harsh provisions of sub-sections (3),
( 4) and ( 5) of s. 20B on the lines indicated by us. With these
observations, the arguments of the learned counsel for the petitioners
on this ground are overruled.
E
We now come to the second plank of the argument which com-
prises the challenge to the proviso and the Explanation to s. 2 of the
1955 Act. This provision having been brought into force after the
24th of April, 1973, falls beyond the ambit of Art. 31B and is not
covered by the protective umbrella of that Article. In these circum-
stances, the challenge to the constitutionality of this provision could F
be entertained by us. Mr. Kacker did not controvert this position.
A. The impugned proviso and the Explanation which were added to
clause (8) of s. 2 by the West Bengal Land Reforms (Amendment)
Act, 1977, may be extracted thus : -
"Provided that such person or member of his family G
resides for the greater part of the year in the locality where
the land is situated and the principal source of his income
is produced from such land.
Explanation-The term "family" shall have the same
meaning as in clause (c) of section 14K."
H
t It wa~ submitted that the proviso insists that the cultivator or
member of his family must re~ide in the locality where the land i&
958 SUPREl\tlE COURT REPOR1S [ J 98 l) 2 S.C.R.

,A situate for the greater part of the year and thus deprives the peti-
tioners of their right guaranteed to them under Art. 19( 1) ( e) and
(g) o[ the Constitution inasmuch as :t compels the pct11ionc1 to
reside in the vil'iagll and prevents the111 from either going to or
residing in any other place in India. The second ground of challenge
to the constitutionality of the proviso was that it places a serious curb
on the right of the petitioners to carry on their occupation other than
agriculture
As regards the first argument, we are unable to agree with the
learned counsel because the object of the proviso is to safeguard the
interest of the tenant himself so that he may give whole-hearted
attention to the personal cultivation of the land which has been
secured for him by virtue of a valuable piece of agrarian reform.
If the tenant is allowed to go out of the village and reside at other
places then the benefit conferred by the 1955 Act cannot be fully
utilised by the tenant and would frustrate the very purpose for which
agrarian reforms are meant. Moreover, the land is given to the tenant
as the tiller of the soil fundamentally for the reason that cultivation
is his main source of sustenance as is mentioned in the proviso itselt.
If, therefore, the principal source of sustenance of the tenant
is agriculture it would be futile for the tenant to say that be
should be permitted to follow other avocations or occupations in
the main which will defeat the very purpose for which the proviso
:E has been enacted. The proviso does not debar him from following
any other occupation but once a tenant wants to have the land to
himself for personal cultivation be must elect whether to pursue the
profession of culiivation or some other occupation. Thus, even though
there is some amount of restriction bo.tb on the right of the petitioners
to reside or follow any other occupation, such a restriction cannot
be said to be arbitrary or unreasonable. It is well settled that where
a restriction is imposed by the legislature in public interest in order
to advance a particular purpose or carry out the dominant ob.iect,
such a restriction is undoubtedly a reasonable one within the mean-
ing of clauses ( 4) and ( 5) of Art. 19 of the Constitution.
Moreover, in the instant cast, the restriction does not amount to
G
complete deprivation of the right of the tenant to reside elsewhere
because the words 'for the greater part of the year' leave sufficient
scope to the tenant to reside elsewhere for a part of the year if be
so desires. Furthermore, the Explanation adopts the definition of
"family" which is the same as defined in s. 14K of the 1955 Act
which runs thus :
"(i) himself and his wife, minor sons, unmarried
daughters, if any,
\;ALIMATA THAKURANI r. l!'>;!O~ (Fazal Ali, J.) 959

(ii) his unmarried adult son, if any, who does not
hold any land as a raiyat,
(iii) his married adult son. if any, where neither such
adult son nor the wife nor any minor son or unmarried
daughter of such adult son holds any land as a raiyat,
(iv) widow of his predeceased son, if any, where neither
such widow, nor any minor son or unmarried daughter of
such widow holds any land as a raiyat,
(v) minor son or unmarried daughter, if any, of his pre-
deceased son, where the widow of such predeceased son is
dead any minor son or unmarried daughter of such pre- c
deceased son does not hold any land as a raiyat,

but shall not include any other person."
Thus, it is not necessary that the tenant should himself reside in
the village for the greater part of the year and it is sufficient if any
member of the family which includes his wife, unmarried adult mar- D
ried adult, minor son and so on, remains in the village and this would
amount to substantial compliance of the conditions of the proviso.
The restriction, therefore, is partial and in pnblic interest and bears
'a close nexus with the object of the 1955 Act, viz., to achieve agrarian
reforms.
E
The fundamental rights enshrined in Art 19 of the Constitution
are not absolute and unqualified but are subject to reasonable res-
trictions which may be imposed under sub-clauses (4) and (5) of
Art 19. Whenever a complaint of violation of fundamental rights
is made the Court has to determine whether or not the restrictions
imposed contain the quality of reasonableness. In assessing these F
factors a doctrinaire approach should not be made but the essential
facts and realities of life have to be duly considered. Our Constitution
aims at building up a socialist state and the establishment of an
egalitarian society and if reasonable restrictions are placed on the
fundamental rights in public interest, they can be fully justified in
law. Tue principles laying down the various tests of reasonablene~s G
have been very aptly enunciated in the case of State of Madras v.
V. G, Row( 1) which is almost the locus classicus on the subject in
question, In that case Shastri, C.J,, speaking for the Court observed
as follows : -
"It is important in this context to bear in mind that the H
test of reasonableness, wherever prescribed, should be
(I) [1952) S.C.R. 597 .. '
960 SUPREME COURT REPORTS (1981] 2 S.C.R.

A applied to each individual statute ;mpugned, and no ab-
stract standard, or general pattern, of reasonableness
can be laid down as applicable to all cases. The nature of
the right alleged to have been infringed, the underlying
purpose of the restrictions imposed, the extent and urgency
of the evil sought to be remedied thereby, the disproportion
B of the imposition, the prevailing conditions at the time,
should all enter into the judicial verdict."

The case has been consistently followed by later decisions of this.

C
Court right uptodate.

Another important factor to consider the reasonableness of res-
trictions is if the restrictions imposed are excessive or dispreportionate
to the needs oi a particular situation. Further, if the restrictions are
in implementation of the directive principles of the Constitution the
l
same would be upheld as being in public interest because the individual
interest must:o yield to the interest of the community at large for only
D then a welfare state can fiourish.

Applying these tests to the facts of the present case we are satis-
fied that the restrictions contained in the i1lJiPugned proviso cannot be-
said to be unreasonable for the following reasons :
The dominant object of the proviso is to abolish 1he age-
E old institutions of absentee land-holders by insisting that
the cultivator to whom land is allotted must give full and
complete attention to the soil and as a result of which
there will be a maximum utilisation of the agricultural
resources which would increase production. Under the
F Amendment Act of 1972 an adult unmarried person is en-
titled to hold an area up to 2.50 hectares which is equal
to 6. 72 acres, a tenant with a family of two or more is
entitled to hold 12.36 hectares and a tenant having a family
of five or more is entitled to hold 7 hectares which is equal
to 12.23 acres being the maximum area permissible. Thus,
G the area left to the tenant is quite vast and appreciable and
if the tenant wants to bring this area under cultivation in
right earnest it would hardly leave him time to quit the
village and pursue other avocations of life. It is
obvious that the tenant has to remain in the village for
the purpose of cultivating the lands, sowing the seeds,
H growing it and harvesting it. These processes would doubt-
les11 require the presence of the tenant for a greater part of
the year which i11 what the proviso predicates. If the
KALIMATA THAKURANI v. UNION (Fazal Ali,/.) 961

tenant is permitted to leave the village for more than half A
the year then the very purpose of giving such a vast area
for cultivation to a tenant will be foiled. Moreover, the
proviso merely insists that the tenaut should remain in the
village or its periphery for "greater part of the year" which
appears to be not only reasonable but absolutely essential
B
if the land has to be cultivated in a scientific manner in
order to yield the maximum possible production, which
would result in better and equitable distribution of agricul-
tural products for the use of the people of the country.
Another aspect of the proviso is that the land is given to the
tenant only if his main source of sustenance is from agriculture so C'
that the land may be reserved only for the tiller of the soil and none
else. Hence, the restrictkms imposed, therefore, by the proviso are
undoubtedly in public interest and in consonance with the concept of
promoting and accelerating agrarian reforms which is the prime need
of the hour.
D
For these reasons, therefore, the challenge that the proviso
violates Art. 19(1) (e) and (g) must fail.
The last contention put forward by the petitioners was that the
proviso is also violative of Art. 14 inasmuch as it is extremely arbi-
trary and discriminatory. We are unable to uphold the challenge on
the ground that the proviso violates Art. 14 because we do not find E
any element of arbitrariness in the proviso. If the statute insists that
the tiller of the soil must remain in the village for a greater part of the
year in order to cultivate the land which has been given to him and
thereby increase the produce of the land, no serious prejudice is
caused to the tenant because that is the purpose for which he has
himself secured the land. Secondly, as the proviso operates equally F
to all the tenants governed by it no question of discrimination at all
arises. Thus, this argument also is wholly untenable and must
fail.
For the reasons given above, we hold that both the Act of 1955,
including the Amendment Act of 1972, and the proviso introduced G
by the Amendment Act of 1977 are constitutionally valid. As we
have made certain observations regarding the harshness of the pro-
visions of sub-sections (3), (4) and (5) of s. 20B of the 1955 Act,
1
let a copy of this judgment be sent to the Hon'ble Chief Minister of
West Bengal. The petitions are dismissed without any order as to
costs. B
N.V.K. Petitions dismissed.
14-214SCI/81