Holding

The State’s order does not contravene the Constitution or the Council’s regulations; Regulation II is directory, and the relaxation is valid under Article 15(4).

Summary

The Madhya Pradesh Government issued an executive order on 9 September 1980 that completely removed the minimum qualifying‑marks requirement for candidates belonging to Scheduled Castes (SC) and Scheduled Tribes (ST) when selecting them for seats reserved in state medical colleges. Nivedita Jain, a general‑category candidate who met the qualifying marks but lost admission because the SC/ST seats were filled without merit‑based competition, challenged the order before the High Court, which struck it down on the ground that it violated Regulation II of the Indian Medical Council and Articles 14 and 15 of the Constitution. On appeal, the Supreme Court held that Regulation II is merely a directory recommendation, not a mandatory provision, and that the State’s relaxation is permissible under Article 15(4) as a measure for the upliftment of SC/ST communities. Consequently, the order was upheld, the High Court’s decision set aside, and the writ petition dismissed. The Court also directed that Jain be allowed to continue her studies, having already been admitted under an interim order.

Issues considered

The executive order relaxing minimum qualifying marks for SC/ST candidates violates Regulation II of the Indian Medical Council and Section 19 of the Indian Medical Council Act, 1956.
Whether the order infringes Articles 14, 15(1) and 15(2) of the Constitution.
Whether the State has authority under Article 162 to make such rules in the absence of a specific statute.
The nature of Regulation II – whether it is mandatory or merely directory.
The alleged conflict with Ordinance 54 of Jabalpur University.

Legislation cited

Indian Medical Council Act, 1956s. 19, s. 19A, s. 33

Subjects

reservationmedical college admissionscheduled castesscheduled tribesminimum qualifying marksIndian Medical Council ActArticle 15(4)Article 14executive orderRegulation IImerit selectionconstitutional law

Judgment

759 A

J STATE OF M.P. AND ANR.
v.

KUMAR! NJVEDITA JAIN AND ORS. 8
September 22, 198/
l
r
;
[ Y.V. CHANDRACHUD, C.J.. A. VARADARAJAN AND
AMARENDRA NATH SeN, JJ. J
c
Right of opportunity for admission to medical co/l~gr1-Rule:s for A.dmlssiorr
/No the Mtdical, Dentistry and .A.yurvedic College:~ lrr Madhya Prade:~h prescribing
Rltttion purely on merit from amongst those who have qualified In the written
tmrinQtiGr.-Ftstfi'Otion of stOI$ for Scheduled Castes afld Sclreduled Tribe3 to
tltt tzttnt of IS% for each caugory subject to a provlslo!lln Rule 9 to the effect
Pot 1111/illtd vacancie11 should go to candidates available 'on the combined Merit
Usi-Statt Governmmt by on executive ordtr dated 9th September, 1980 compte·
0
tr/1 rtlaxing the €0ndilfa11S relating to the minimum qualification marlu for :selec-
tioll to medical collegu In farour of Scheduled Castes and Scheduled Tribu-
Wittthtr tht exuutht order offMds .A.rticlu 14 and 15 of the Co11StitUJiort and
Ordillanct 54 of the C/nlrtulty of Jabo/pur, Rrgulation 2 of the Medical Co~~IrCil of
ladiJJrtadwlth :section 19 of the Indian Medical Council Act, /956. -
E
In exercise or its executive power the State Government of Madbya
Pndt$h made by its order dated 2nd April, 1980 the Rules for admission into
the Medical, Dentistal and Ayurvedic Colleges in Madhya Pradesh. By and
on~tr Rule 7 tho State Government has reserved 15% or seats for each or tho
nttaorics or Scheduled Cutes and Scheduled Tribes candidales. Rule 20 lays
down that ~tlection or candidutu from nmons" those who have qualified in the
rumination ihall be made strictly on merit as disclosed by total number of F
marks obtained by candidates in the pre-medical e:urnination. Rule 20 further
:o;•~n that minimum qualifying marks for admission to Medical Colleges shall
C •0/.ln the aur~~ate and 33% In each subject respectively; but for Schedul~d
· ~~~t~ and Scheduled Tribes candidates tbe minimum qualifying marks shall be
r.
th 10 the anre~ate and 30% in each ,ubject. Note (ii) below Rulo 20 empowc~
d:k~ovenun~nt to arant in case of candidate belont~ing to the :a~egori.::s of ~~o·
Ut1tet and ~hcdult:d Tribes special relaxation In tho mmtmum quultfytog G
marks to the
Qndl ·
. extent constd~red · d num ber o f
n.:ceuory in the ev.:nt of the rcquu-e
•lo tdatet JU tbcse two categories not being available. Rule 9 contains a provi.
an:.;: the tlYect that In case seuts rc$Crvod for categories of Scheduled Castes
h•ilabbcdultd Tribes remain vaCllnt, theso seats will be filled up by ~ndidates
MeditaJlt 00 tho combined merit Jist. Tho total number of seats Ill all the
•M Scbe~o:It-aet beloa 720 in number, 108 aeats ca.:h for tho S;;heduled Castes H
u cd Tribes became re!erved under Rulo 7.
760 SUPREME COURT REPORTS [ 1982] 1 s.c.R.

For admission to the Medical Colleges for the academic year l 980-Sl, there
were 9400 candidates in all, of which f23 candidates were from Scheduled Castes I "
and 145 candidates were from Scheduled Tribes. On the result of the pre-medi-
cal examination only 18 seats in tl:e category of Scheduled Castes and 2 scats in
the category of Scheduled T 1ites cculd te f:lled up because the other candidates
of these categories did not ~ccure the qualifying marks prescribed by Rule 20.
The Selection Board in exercise of the pov. er under note (i) to Rule 20 made a
B rc)a)(ati(\n c f 5% in terms thereof and thereafter 7 more candidates in thecate-
I!OJY of Scheduled Castes and or:e reme in the category of Scheduled Tribes got
admitted, Jc:aving a balance of 83 seats under Scheduled Castes' quota, and 105 J
seats under th: Sdedulcd T1ibcs quota to te filfed as provided for under Rule 9.
But the State Government, by its order dated 9th September, 1980 removed the
condition relating to minimum qualifying marks in favour of the candidates from
amongst Scheduled Castes and Scheduled Tribes.
c The respondent belonging to the general category who obtained the mini-
rr.um qualifying rrarks but could not ~t(me a emission as other candidates for
the general seats had obtained marls hil!her than she had oblained in the pre-
medi.ca\ examination for filling up the vacancies available in the general category,
would have been in a position to secure admission to the Medical College but
for the complete relaxation granted by the impugned order without complying
D with the provisions of Rule 9. She, therefore, filed a writ petition in the High
Court on the grounds, inter alia, (1) that the order of the Government contravenes
Regulat;on II of the M~dical Council of India and would hit Section 19 of the
lndian Medical Cetncil Act, 19:6, eJ<posing the Medical Colleges to the risk of
teing cuecqni~(d; (:2) tht tt.e crder of the Government will have the effect of
allo"-ing less qualified and Jus de~uving candidates to fill up the seats and would,
therefore, destroy equality and violate Ariicles 14 and 15 of the Constitution;
and (3) the order was violative of Ordinance 94 of the University of Jabalpur.
E The High Court accepted the contentions of the writ petitioner and allowed
the petition. Hence the appeal by the State, after obtaining spe cia I leave.

Allowing the appeals, the Court,

HELD ; l. The executive order dated 9th September, 1980 pass~:d by the
F State of Madb)a Pradt!h ccrrpletely Jelaxing the conditions relating to the
minimum qualif:~-ing n·arks for ~election of students to Medical Colleges of the
State in respect of candidates belongmg to Scheduled Castes and Scheduled
Tribes is not violative of either Article 14, 15(1) or 15(2) or 15 (4). [785 G, 788 C)

2. The relaxation does not offend Article 14 of the Constitution. There is
no relaxation of the condition regarding eligibility for and admission into Medi-
G cal Colleges. The relaxation is only in the rule regarding selection of candidates
belonging to Scheduled Castes and Scheduled Tribes who were otherwise qualified
and eligible to seek admission into Medical Colleges only in relation to seats
reserved for them. Further the validity of the reservation of seats for candidates
belonging to Scl:eduled Castes and Scheduled Tribes have not been challenged
and very properly in view of Article 15 (4) of the Constitution. [786 E·G]
H
3. 1lle rela~ation cannot be said to be unreasonable and does not violate
Articles 15(1), (2) and (4) of the Constitution. The State must do everything
M.P. STATE V. NIVEDITA JAIN 761

possible for the upliftment of the Scheduled Castes and Scheduled Tribes and A
other backward communities and it is entitled to make reservations for them in
the matter of admission to medical and other technical institutions. In the
absence of any law to the contrary, it mast also b~ open to the Govemm~n t to
impose such conditions as would make the reservation elf~ctive and would benefit
the candidates belonging to these categories for whose b~n~fit and welfare the
reservations have been made. In any particular situation. taking into considera-
tion the realities and cir.;umstances prevailing in the State it will be open to the 8
State to vary and modify the conditions regarding selection for admissio n, if
such modification or variation becomes necesSlry for achieving the purpose for
which reservation has been made and if there be no law to thi! contrary. N.He (ii)
of rule 20 of the Rules for a :I mission fram~d by the State Governm:nt sp!cifically
empowers the Government to grant such relaxation in the minimum qualifying
marks to the extent considered necessary. The order can be supported under
Article 15(4) of the Constitution. [785 H, 786 A-D] c
State of Kerala and Anr. v. N.M. Thomas, [1976] l SCR 906; Jagdish Saran
and Ors. v. Union of India and Ors., [1980} 2 SCR 831, followed.

Amalendu Kumar v. State oi Bihar, AIR 1980 Patna -1 overruled.
... ;
D
4. Under Article 162 of the Constitution the executive power of a State,
extends to the matter with regard to which the Legislature of a State has power
to make laws. As there is no legislation covering the field of selection of candi-
dates for admission to Medical Colleges, the State Government would,
undoubtedly, be competent to pass executive orders in this regard. [785 D-E)

State of Andhra Pradesh and Ors. v. Lavu Narendranath and Ors. etc. etc. , E
[1971] 3 SCR 699, reiterated.

5:1. Regulation II of the Indian Medical Council is merely directory and
in the nature of a recommendation and, therefore, has no such statutory force as
to render the executive order dated 9th Septemper, 1980 which contravenes the
said Regulation illegal, invalid and unconstitutional. [785 B-CJ
F
Entry 66 in List I (Union List) of the Seventh Schedule to the Constitution
relates to "co-ordination and determination of standard in institutions for higher
education or research and scientific and technical institutions". This entry by
itself does not h;.ve any bearing on the question of selection of candidates to the
Medical Colleges from amongst candidates who are eligible for such admission.
On the other hand, entry 25 in List II (Concurrent List) of the same Schedule
speaks of "education, including technical education, medical education in Univer- G·
sities, subject to entries 63, 64, 65 and 66 of List ! ......... vocational and technical
training of labour". This entry is wide enough to include within its ambit the
question of selection of candidates to Medical Colleges and there is nothing in
the entries 63, 64 and 65 of List I to suggest to the contrary. [784 G-H, 785 A-C)

5:2. Regulation I of the Medical Council prescribes the requisites which H
have to be satisfied to enable every student to become eligible or qualified to seek
admission and the process of selection comes thereafter. As this Regulation is
;=
SUPREME COURT ~BPORTS [1982] 1 S.C.R.
762

A within the competence of the Council t~e Counci~ .;ha~ framed this Regulation
j n manner which leaves no doubt that th1s RegulatiOn IS mandatory. [783 B-q
8

S:3. Regulation 11 of the Council is merely in the nature of a rccomrneo.
dation. Regulation II begins with the words "selection of students in medical
college should be based solely on merit". Language used in Regulation II is
deliberate aod is intended to indicate the intention of the Council that it is only
B in the nature of a recommendation. By way of. solution to the problem of
dearth of seats, the Council . appears to have thought it fit to suggest the proce-
dure which will have the effect of selecting such candidates on the basis of merit
only. The procedure 6Ufgested is intended to do away with nepotism and
favouritism and any unfair practice in the matter of such admission, as the
procedure recommends merit to be the criterion. Regulation II recommendinz
c the process of selection is outside the authority of the Council under section 33
of the Act and the Council bas advisedly and deliberately used such language in
Regulation II as makes the position clear and places th~ matter beyond nny
doubt. further, apart from reservations of seats for Scheduled Castes and
Scheduled T1ibes and other reservations, reservation of scats is commonly made
for being filled up by nomination. In the instant case, it appears that seats not
D exceediog three per cent are reserved for the nominees of the Government of India
apart from the other reservations. These nominees of the Central Government
do not have to ait for any pre-medical examinntion to qualify themselves for
selection to the Medical Colleges, They mu~t of course~ be eligible for admission
in the sense that they must hove the necessary qualification for admis~ion in
accordance wuh Regulation I. The candidates eligibk under Regulation I are
selected by virtue of nomination and there is no question of any pre-medical te$t
E for such candidales nominated by the Central Government. If Regulati"n II
~~
~I
could be considered to be mandatory, there could be no such nomination of
candida1es by the Central CovcmmcoL [783 G -H, 784A-C,\E-G)
'~
.
.r
'i 6:1. An analysis of the: uriou~ aections of the Indian M.:dical Council
Act, 1956 indicates that tho main purpose of the Act is to establish Medical
Council of India, to provide for its constitution. ~:omposi1ion and functions and
F the maio function of the Council is to maintain the medical register of India and
to m1ointain a proper llandard of medical education and meJiL'lll ethics and
profti.l>ional conduct for medkal practitioners. The scheme or the Act aprcar1
to be that the Medical Council of Jndia Is to be set up in tho maooer provided
. ,'•f
.
in tbe Act and the Medical Council will maintain 11 proper m.:dical ro:gist~r,
v.ill prC'SCTibe minimum 5tandarda of medico! education required (l)t 11ranllnJ
r«e¥lJ~d mc:dfcal quaJificatioos, WiJI a) so prescribe •tandard~ Of po~t·graJilate
nltdi~al education and will further tellulatc the standard or prof~ssional condtlloi
G awd etiquette and code of ethie~ for mcdiclll pr.1ctitioners. The Act fllrtb~
envil>B@tS I hilt if it appear• to 1he Council that the courses of stu<ly and e•am•·
nation to be uod(ratone In, or the proficiency required from candidates at anY
eJ.:crmioatklD htld by any U11.iversity or Medical Institution do not conform 10. the
&lll?~~ard prc~tibed by the Council or that tho stzttT, equipment, accommodat.'Oll•
t~•unna an~ other facilitie!i for instru.:llons and training provided in such ~n,vet·
H ••ty Of medical institution or in any c:olle<>c or other Institutions affihated w
I t•lit u IHV(t. " prescribc:d by I he Counc•'1• t~d
' <,ity do not conform to the standard$
Cr,.~r" il "ill make a representation to that eiT.:ct to the Central Government 10
M.P. STATE v. NIVEDITA JAIN 763

on consideration of the representation made by the Council, the Central Govern-
A
ment may take action in terms of the provisions contained in section 19 of the Act.
[776 G-H, 777 A-C)

The Act also empowers the Council to take various measures to enable the
Council to judge whether proper medical standard is being maintained in any
particular institution or not. (777 C-DJ B
6 : 2. The authority of the Council extends to the sphere of maintaining
proper medical standardq in Medical Colleges or institutions necessary for obtai-
ning recognised medical qualifications. By virtue of this authority it may be
open to the Council to lay down the minimum educational qualifications required
of a student who may seek admission into a Medical College. In other words,
the eligibility of a candidate who may seek to get admitted into a medical
college for obtaining recognised medical qualifications may be prescribed by the
c
Council. AU the candidates who are eligible for admission into Medical Colleges
or institutions for getting themselves qualified as medical practitioners are entit-
led to seek admission into a Medical College or institution. As to how the

-; selection has to be made out of the eligible candidates for admission into the
Medical College is a matter which has necessarily to depend on circumstances
and conditions prevailing in particular States. Though the question of eligibility D
for admission into the medical curriculum may come within the power and juris-
diction of the Council, the question of selection of candidates out of the candi-
dates eligible to the medical course does not appear to come within the purview
of the Council. (777 E-H, 778 A]

6 : 3. The process of selectioll of candidates for admission to a Medical
College out of the candidates eligible for admission for filling up the limited E
vacancies has no real bearing on the question of eligibility or qualification for
admission or on the standard of medical education. The standard of medical
education really comes into the picture in the course of studies in the medical
colleges or institutions after the selection and admission of candidates into M!di·
cal Colleges and institutions. Students who satiffy the requirements of Regula-
tion I become qualified or eligible to seek admission into the Medical Course.
Regulation I prescribes the requisites which have to be satisfied to enable every F
student to become eligible or qualified to seek admission and the process of
selection comes thereafter. [778 C-E]

Undoubtedly, under section 33 of the Act, the Council is empowered to
make regulations with the previous sanction of the Central Government generally
to carry out the purposes of the Act and such regulations may also provide for
any of the matters mentioned in section 33 of the Act. [778 E·F] G
Stare of Kerala v. Kumari T. P. Roshana and Drs., [ 1979] 2 SCR 974: Arti
Sapru v. State of Jammu and Kashmir and Drs.. [1980] 3 SCR 34, explained
and distinguished.

CIVIL APPELLATE JURISDICTION: Civil Appeal Nos. 554·555
of 1981.
764 SUPREME COURT REPORTS [1982] I s.c.~.

A From the judgment and order dated the 6th November, 1980
I ~
of the High Court of Madhya Pradesh at Jabalpur in Misc. Peti-
tion No. 510 and 613 1980.

N.M. Phadke, AM. Mathur, Advocate Genl. M.P., S.K. Gambhir
and Vijay Hansaria for the Appellants.
B
S.N. Kackar, Vineet Kumar, Gulab Gupta, Nare~h K. Sharma,
S.Q. Hasan, P.N. Puri, E.M.S. Anam and M.K. Dua for the respon-
dents.

B.R. Agarwala for the Medical Council.
c · S.K. Mehta, P.N. Puri and M.K. Dua for the interveners.

The Judgment of the Court was delivered by

AMARENDRA NATH SEN, J. The validity of the executive order
dated 9th September, 1980 passed by the State Government com·
D pletely relaxing the conditions relating to the minimum quailfying
marks for selection of students to Medical Colleges of the State in
respect of candidates belonging to Scheduled Castes and Scheduled
Tribes categories forms the subject matter of these appeals by Special
Leave.

E The·facts material for the purposes of these appeals may be
stated:

Kumari Nivedita Jain, one ofthe Respondents in the present
appeals, was a candidate for admission to a Medical College in the
State of Madhya Pradesh. In the State of Madhya Pradesh there
F are six Medical Colleges affiliated to different Universities in the
State. The total number of seats in all these Colleges is 720. By
an order dated 2nd April, 1980 the State Government made rules
for admission to Medical Colleges, the College of Dentistry Indore
and Government Ayurvedic Colleges of the State and the said Rules
are called "Rules for Admission into the Medical, Demistry and
G Ayurvedic Colleges in Madhya Pradesh" (hereinafter referred to as
the Rules). These Rules were made in exercise of the executive
power of the State and these Rules are not statutory. By and under
Rule 7 of the Rules, the State Government has reserved 15% seats
for each of the categories of the Scheduled Castes and Scheduled
H Tribes candidates. That means, out of 720 seats, 108 seats are
reserved for the Scheduled Castes candidates; and the same number,
that is, 108 seats are also reserved for the candidates belonging to
M.P. STATE v. NIVEDITA JAIN (A.N. Sen, J.) 765

the category of Scheduled Tribes. By and under the same Rules, A
15% seats are reserved for women candidates and seats not exceeding
3% are reserved for the children of n ilitary personnel. Under Rule
8, some further reservations have been made and under this Rule,
seats not exceeding 3% are reserved for the nominees of the GJvern·
ment of India and 3 seats are reserved for the candidates nominated
by the Government of Jammu and Kashmir. Rule 1 (iii) provides B
that a Pre-Medical Examination shall be held every year for selection
of candidates for admission to the Medical Colleges and all admis-
sions shall be made only from the merit list prepared on the basis
of the result of this examination except in case of seats placed
at the disposal of the Government of India and other States.
Rule 15 mentions the subjects of the Pre·Medical Examination and c
rule 20 Jays down that selection of candidates from amongst those
who have qualified in the examination shall be made strictly on merit
as disclosed by total number of marks obtained by candidates in the
Pre-Medical Examination. Rule 20 further provides that minimum
qualifying marks for admission to Medical Colleges shall be 50% in
the aggregate and 33% in each subject separately : but for Scheduled D
Cates and Scheduled Tribes candidates, the minimum qualifying
marks shall be 40% in the aggregate and 30% in each subject.
Rule 20 in its note (ii) empowers the Government to ~grant in case
of candidates belonging to the categories of Scheduled Castes and
Scheduled Tribes special relaxation in the minimum qualifying marks
to the extent considered necessary in the event of the required num-
ber of candidates in these two categories not being available. For
the total number of 720 seats in the Medical CoUeges of the State,
there were 9400 candidates in all. Of the 9400 candidates, there
were 623 candidates belonging to the ca·egory of Scheduled Castes
for whom 108 seats were reserved; and for the 108 seats reserved for
candidates of the Scheduled Tribes Category, there were 145 candi- F
datea belonging to that category. On the result of the Pre-Medical
Examination only 18 seats in the category of the Scheduled Castes
and 2 seats in the category of Scheduled Tribes could be filled
up, because the other candidates of these categories did not secure
qualifying marks prescribed by rule 20. As 90 seats had remained
G
vacant in the category reserved for Scheduled Castes after selection
of the 18 candidates and 106 seats remained unfilled in the category
of seats reserved for Scheduled Tribes after selection of the two can-
didates on the result of the examination, the Board in exercise of the
power under Note (i) to Rule 20 made a relaxation of 5% in H
terms thereof and thereafter 7 more candidates in the category
766 SUPREME COURT REPORTS [1982] l S.C.R

A gory of Scheduled Castes and one more in the category of Scheduled
Tribes got admitted. Thus out of 108 seats reserved for each cate· / ..
gory of the Scheduled Castes and Scheduled Tribes, only 25 seats
could be filled in the category of Scheduled Castes and three in the
category of Scheduled Tribes. As only a very few candidates of
1hese two categories could get admitted into Medical Colleges and a
B large number of seats reserved for them could not be filled up by
the candidates of these two categories on the basis of the result of
the examination even after relaxation had been made in terms of
the provisions contained in Note (i) to Rule 20, the State Govern-
ment passed an order on the 9th September, 1980 completely relaxing
the conditions relating to the minimum qualifying marks for these
c two categories. l he order dated 9th September, 1980, the validity
of which has been questioned in the Writ Petitions filed by Nivedita
Jain in the High Court, is to the follo Ning effect :-

"The Government has taken a decision that the can-
didates belonging to the Scheduled Castes and Scheduled
0 Tribes be admitted to the Medical Colleges in the seats
reserved for them in accordance with the merit to be deter-
mined on the basis of the marks obtained by them in
the Pre-Medical Examination and that for this purpose,
the condition relating to the obtaining of minimum quali-
fying marks be removed".
E
Kumari Nivedita Jain, as we have earlier noticed, was a
car.didate for admission into a Medical College in the general seats,
--
that is, the seats which have not been otherwise reserved. Though
she had obtained necessary qualifying marks, she could not secure
her admission, as other candidates for the general seats had
F
obtained rrarks higher than she had obtained in the Pre-Medical
Examination, for filling up the vacancies available in the general
category. It may be noted that rule 9 contains a provision to the
effect that in case seats of reserved categories of Scheduled Castes
and Scheduled Tribes remain vacant, these seats will be filled up
G by the candid ales available on the combined merit Jist. If the seats
in the reserved categories had been thrown open to candidates in
the general category on account of the failure on the part of the
candidates belonging to the categories of Scheduled Castes and
Scheduled Tribes to obtain minimum qualifying marks, Nivedita
H Jain would have been in a position to secure her admission to the
medical college. As the State Government by its crder dated 9th
September, 1980 decided to relax completely the conditions relating
M.P. STATE V. NIVEDITA JAIN (A.N. Sen, J. \ . 767

to minimum qualifying marks for these two categories of Scheduled A
Castes and Scheduled Tribes candidates instead of filling up these
seats by candidates available on the combined merit list, she was
deprived of the opportunity of getting her admission into the
medical college. She, therefore, filed this writ petition in the High
Court or"Madhya Pradesh challenging the validity of the said order
of the State Government dated 9th September, 1980. It will be
8
noticed that this order of the State Government is also an executive
• order.

The principal grounds on which the validity of the order has
been challenged by Nivedita Jain, the respondent herein and the
·,
petitioner in the writ petition before the High Court, are-( 1) that c
the order of the Government contravenes Regulation II of the
Medical Council of India and would hit S. 19 of the Indian Medical
Council Act, 1956, exposing the medical colleges to the risk of
being derecognised; and (2) that the order of the Government will
have the effect of allowing less qualified and less deserving candi·
dates to fill up the seats and would, therefore, destroy equality and D
violate Arts. 14 and 15 of the Constitution.

It appears from the judgment of the High Court that another
ground, namely, that the order dated 9th September, 1980 was
violative of Ordinance 94 of the University of Jabalpur, was also
urged before the High Court, though this ground does not appear E
to have been taken in the petition.

The High Court accepted the contention of the writ petitioner
that the order in question violated Regulations of the Council
holding that "the executive power of the State under Art. 162
cannot be so exercised as to over-ride the statutory provisions, more F
so when the said provision is in a field occupied by the Union List.
The executive power can be used to supplement a law but not to
supplant it" The High Court further held that "the total relaxation
of minimum marks for the candidates belonging to these categories
cannot be supported under Art. 15( 4) being violative of the Regula-
tions which have the force of law." Dealing with the contentions
G
of violation of Ordinance 54 of the University of Jabalpur, the
High Court observed:

"As the Ordinance has to be read alongwitb the H
regulations and can be given effect to only in so far it is
consistent with the regulations, it cannot constitute a new
768 SUPRBMB COURT REPORTS fl982J 1 S.C.R.

A ground for invalidating the impugned order, We would,
however, like to emphasise again that when a common
entrance test for selection of candidates is held by the I
Government for all the medical colleges, it is very necessary
that the Universities must prescribe identical conditions
for admission consistent with the Regulations made by the
B Medical Council to avoid any confusion in the matter of
admission."

In the result, the High Court allowed the writ petition and
struck down the order of the State Government dated 9th Septem-
ber, 1980.
c
In this appeal by special leave, the State of Madhya Pradesh
and the Controller of Examinations of pre-medical test havo
challenged the correctness of the decision of the High Court.

Before we proceed to consider the various arguments advanced
D
on behalf of the parties, we may here note that in the writ petition
filed by Nivedita Jain, she also challenged the validity of the reser-
vation made by the State Government of 3% ofthe seats for the
children and grand children of freedom-fighters by another order
passed by the State Government on the 19th September, 1980. The
E validity of this order was, however, upheld by the High Court.
The matter rests there and in this appeal we are not concerned with
this aspect of the matter.

Mr. Phadke, learned counseJ appearing on behalf of the
appellants, has submitted that the High Court struck down the order
F in question mainly on the ground that the order is violative of the
Regulation II of the Council. He has argued that the validity of
the reservations for the members of the Scheduled Castes and
Scheduled Tribes has not been questioned. It is his argument that
the seats are reserved for those communities in the interest of ..
weaker sections of the society and the State under Art. 15( 4) of the
G Constitution is competent to do everything possible for the uplift-
rnent of the Scheduled Castes and Scheduled Tribes and other
backward communities and the State is entitled to make necessary
reservations of seats in the matter of their admission to medical
colleges. He submits that it must be open to the State to lay down
H such conditions as will make such reservations effective and will
enable the candidates belonging to the categories of Scheduled
Castes and Scheduled Tribes to get the benefits of such reservations,
M.P. STATE v. NIVEDITA JAIN (A.N, Sen, J.} 769
A
in discharge of the duties and obligation of the State, to the mem-
bers of those communities and other backwar::l communities. It is
his submission that in the instant case when the State found that
the qualifying conditions laid down for the admission of the candi-
dates belonging to those communities had in reality resulted in
deoial of the opportunities sought to be given to them, the Govern-
ment considered it expedient to relax the conditions to enable the B
candidates of those communities to get the admission to medical
colleges for prosecuting their studies to become qualified medical
practitioners. Mr. Phadke has contended that the provisions con-
tained in Regulation II for violation of which the order in question
has been struck down, are directory in nature and they are not
mandatory in character, and, as such, they do not have any binding c
effect; and it is open to the State to make Rules which may not
be in accord with the provisions contained in the said regulation
for admission to the medical colleges. Mr. Phadke has taken us to
the various provisions of the Indian Medical Council Act (herein-
after referred to as the Act) and also to the Regulations framed by
the Council. Mr. Phadke submits that the scheme of the Act D
clearly suggests that the Council is essentially concerned with the
standard of medical education in the country and that stage only
arrives after the students have been admitted into Medical Colleges.
Mr. Phadke has drawn our attention particularly to Sections 19 and
19A of the Act and he has commented that under S. 33 of the Act.
the Council with the previous sanction of the Central Government E
can frame Regulations for carrying out the purpose of the Act. He
has submitted that the selection of candidates for admission to
Medical Colleges cannot be said to constitute any purpose for which
the Act has been enacted, as selection of students has no bearing
on the standard of medical education and the Council is not compe-
tent to frame Regulations for admission to Medical Colleges. F
Mr. Phadke in this connection has referred to the decision of this
Court in the case of Arti Sapru v. State of Jammu and Kashmir and
Ors:(1 ) and has relied on the following observations of the Court
at p. 44:

"Objection to the objective test and the viva voce G
examination is based on the ground that they fall outside
the scheme envisaged by the Regulations made by the
Indian Medical Council for admission to the M.B.B.S,
Course. The respondents, however, question the validity
H
(1) [1981] 3 SCR 34.
770 SUPREME COURT REPORTS [1982} 1 S.C.R.

A of the Regulations. We are then referred by the petitioner
to clauses {i) and {1) of S. 33, Indian Medical Council Act, /
1956, in support of the contention that the power of the
Council to make regulations extends to making regulations
prescribing the examinations and tests for admission. It
seems to us prima facie that those provisions do not autho-
B rise the Council to do so. But we refrain from expressing T
any final opinion in the matter as the Council is not a
party before us.

Mr. Phadke has argued that item 66 in List I of the Seventh
Schedule to the Constitution does not stand in the way of the State
c Government to frame rules for admission to Medical Colleges in
view of item 25 included in List III of the said Schedule. It is the
argument of Mr. Phadke that item 66 in List I which provides for
''co-ordination and determination of standards in institutions for
higher education or research and scientific and technical institutions",
is not intended to deal with the question of s~lection of candidates
D and item l25 in List lli which provides for "education including
technical education, medical education in univestities subject to
provisions of entries 63, 64, 65 and 66 of List I; vocational and
technical training of labour", is broad enough to include all matters
relating to education subject to the provisions of entries 63, 64, 65
and 66 of List I and empowers the State to frame rules relating to
E selection of candidates for admission. Mr. Phadke has submitted
that the Council must have been aware of the limitations of its power
in the matter of selection of candidates for admission; and, the
Council has, therefore, made only a recommendation in this regard
and has not made any mandatory provision about it. In this connec-
tion Mr. Phadke has referred to the language used in Regulation II
F
and has contrasted the same with the language used in Regulation I
of the Regulations. Mr. Phadke submits that as Regulation II is only
in the nature of a recommendation and direcrory, any rules framed
by the State Government regarding selection of candidates in contra-
vention of the said recommendation cannot be held to be invalid
and illegal a'lld cannot be struck down on that ground. Mr. Phadke
G
has also argued that there is no question of violation of Art. 15( I)
and {2) of the Constitution. It is his argument that in view of the
provisions in Art. 15(4) of Constitution, tl:!e State Government is
competent to make special provisions for the advancement of
H socially and educationally backward classes or for the Scheduled
Castes and Scheduled Tribes. Mr. Phadke in this connection has
,.
M.P. STATE v. NJVBDITA JAIN (A..N. Sen, J.) 771

referred to the case of Jagdish Srran a11d 0-s. v. U1io1 of fniia awl A
Ors.e) Mr. Phadke has commented that the view expre,;s-d b; t:1e
High Court that the order which violates the statutory regulation of
the Council must be held to be violative of Art. 15(1) a1i (21 a 1i
not protected by Art. 15(4) must necessarily be held to be erroneous,
as Regulation II is not mandatory and has no binding effect.
B
Regarding violation of Ordinance 54 of Jabalpur University,
Mr. Phadke submits that no such ground has been taken in the
petition and further the affidavit filed on behalf of the university
shows that the Ordinance has not become effective.

Mr. Kacker, Learned Counsel appearing on behalf of the
c
Respondent Nivedita Jain, the petitivner in the writ p.!titton, hli
argued that Regulation Il of the Medical Council is mandlt<Jr)' with
statutory force. He has submitted that the Indian Medical Council
bas been established by the Parliament, inter alia, for tb.e
maintenance of Medical Register for India and the matters rdating D
therewith. He further submits that under s. 33 of the Act the
Council with the previous sanction of the Central Government has
been authorised to make regulations generally to carry out the
purposes of the Act, and without prejudice to the generality of this
power, the regulation made by the council may provide for matters
specifically mentioned in the said section including any matter for E
which under the Act provision may be made by regulations, as
provided in sub-section (u) of Section 33. It is the argument of
Mr. Kacker that Regulation II of the Council which relates to
selection of candidates has been made for carrying out the purposes
of the Act and selection of the right type of students for maintaining
proper standard of medical education comes clearly within the F
purview and jurisdiction of the Council. Mr. Kacker has placed us
various sections of the Act in support of his submission that regulat-
ing selection of students for admission to medical colleges justly comes
within the jurisdiction and function of the Council. In this connec-
tion. Mr. Kacker has also referred to the decision of this Court in
the case of State of Kera/a v. Kumari T.P. Roshana and Anr. (I) and G
be has relied on the following observations at p. 984 ;-

"The Indian Medical Council Act, 1956 has constituted
the Medical Council of India as an expert body to control
H
(l) [1980] 2 SCR 831.
(2) [ 1979] 2 SCR 974.
772 SUPREME COURT REPORTS (1982] I s.c.R.

A the minimum standards of medical education and to
regulate their observance. Obviously, this high-powered I .....
Council has power to prescribe the minimum standards of
medical education. It has implicit power to supervise the
qualifications or eligibility standards for admission into
medical institutions. Thus there is an overall invigilation
B by the Medical Council to prevent sub-standard entrance
qualifications for medical courses''.

Mr. Kacker submits that in the instant case there is no dispute
that the order of the Government dated 9th September 1980 in
question clearly contravenes Regulation II of the Council. Mr.
c Kacker has also drawn our attention to entry 66 of the Union List
which has been set out earlier. Mr. Kacker has contended that the
State Government by an executive order cannot over-ride Regulation
II of the Council which bas statutory force of a ParJiamentary
Legislation, particularly, when the said provisions are in a field
occupied by the Union List. Mr. Kacker has next contended that
D complete relaxation of the conditions in relation to qualifying
marks for admission into Medical Colleges in case of Scheduled
Castes and Scheduled Tribes candidates purported to have been
made by the State Government by the impugned order dated 9th
September, 1980 must also be held to be unconstitutional as the
said order is clearly violative of Art. I 5 (l) and (2) of the Constitu-
E tion and cannot be said to be protected by Art. 15 (4). In support
of this submission Mr. Kacker has relied on the decision of the Full
Bench of the Patna High Court in the case of Amalendu Kumar v.
State of Bihar. (1) In this case the Patna High Court held that
where the State Government reduces the percentage of marks,
marks prescribed for the Scheduled Castes and Scheduled Tribes
F for passing competitive examination held for the purpose of
admission to medical college, by executive fiat, first from 45% to
40% and subsequenty to 35% on the ground that seats reserved for
the Scheduled Castes and Tribes would remain unfilled, both
reductions were invalid as violative of guarantee given under
Art. 15 (1).
G
Mr. Kacker has finally submitted that the order in question
is also liable to be struck down as the order is violative of
Ordinance 54 of University of Jabalpur.
H (1) AIR 1980 Pat. 1.
M.P. STATE v. NIVEDITA JAIN (A.N. Sen, J.) 773

In concluding Mr. Kacker has appealed to this Court that A
irrespective of the result of this appeal, the respondent Nivedita
Jain who has already been admitted into a College on the basis of
interim order passed by this Court in this appeal for prosecuting
her studies in the Medical College, should be allowed to continue
her studies and the fate of this appeal should not interfere with her
studies and with her career. B

As we have earlier noticed, the order in question has been
struck down by the High Court essentially on the ground that the
order whieh is an executive order violates Regulation II of the
Council which has the force of a Statute. It is not in dispute and
it cannot be disputed that the order m question is in conflict with c
the provisions contained in Regulation II of the Council. The main
question that falls for determination is whether the order in question
which contravenes Regulation II is liable to be struck down on the
ground that the State Government by an executive order is
- ; purporting to over-ride Regulation II of the Council. For a proper
determination of the question it is necessary to understand the true
D
nature of the said Regulation II and to consider whether the said
Regulation is of mandatory character wtih statutory force. The con-
tention of the appellants, as we have earlier noticed, is that Regula~
tion II is only in the nature of a recommendation and is directory and
has no statutory force; and the contention of the Respondent Nive-
E
dita Jain, on the other hand, has been that the said Regulation is
mandatory in character with statutory force. For a proper
appreciation of these rival contentions, it becomes necessary to
analyse and understand the scheme of the Act and the Regulations
framed thereunder. The Act was enacted "to provide for re-
constitution of the Medical Council of India and the maintenance
F
of Medical Register for India and for matters connected therewith".
S. 2 deals with definitions and defines "Regulation" in sub-sec. (i)
to mean "a Regulation under s. 33... Ss. 3 to 10 of the Act are
not of any material consequence and these sections deal with
composition of the Council and its functions. S. 11, 12, 13 and
14 which deal with the question of recognition of medical qualifica-
G
tions by the Council are also not very relevant for our present
purpose. S. 15 which deals with question of a person possessing
qualifications for enrolment on any State Medical Register, is also
not very material. S. 16 provides that every University or Medical
Institution in India which grants a recognised medical qualification H
shall furnish such information as the Council may from time to
774 SUPREME COURT REPORTS (1982) 1 S.C.R.

A time require, as to the courses of study and examination to be
undergone in order to obtain such qualification, as to the ages at I
which courses of ~study and examination are required to be under-
gone and such qualification is conferred and generally as to the
requisitts for obtaining such qualifications granted by the University
or Medical Institution. S. 17 confers a right of inspection of
8 Medical Institution, College, Hospital or other institutions where
medical education is given and also to attend any examination
held by any University or Medical Institution for the purpose of
recommending to the Central Government recognition of medical
qualifications granted by that University or medical institution. S.l8
confers a further right of appointing visitors for inspection of any
c medical institution, College, Hospital or other institutions where
medical education is given and for attending any examination held
by any University or Medical Institution· for the purpose of granting
recognised medical qualifications. S. 19 empowers the committee
to make a representation to the Central Government for withdrawal
of the recognition, if it appears to the Council on a report by the
~ -
D Committee or the Visitor that the Courses of study and examination
to be undergone in, or the proficiency required from candidates at
any examination held by any University or medical institution do
not conform to the standards prescribed by the Council or that the
staff, equipment, accommodation, training and other facilities for
instructions and training provided in such University or Medical
E Institution or in any College or other institution affiliated to that
University do not conform to the standards prescribed by the
Council. The said Section 19 further provides that in the event of
any representation being made to the Central Government by the
Council, the Central Government will forward the same to the
Government of the State in which the University or medical
F institution is situated and the State Government shall forward it
along with such remarks as it may make to the University or
Medical Institutioii, with an intimation of the period within which,
the University or medical institution may submit its explanation
to the State Government; and on receipt of the explanation, if any
within the stipulated period the State Government on the expiry of
G the period shall make its recommendations to the Central
Go\ernment and the Central Government after making such
further enquiries, if any, as it may think fit, proceed to act in the
manner laid down in sub-sec. (4) of S. 19 of the Act. S. 19A of the
Act which is important for our purposes in this appeal reads as
H follows:-
M.P. STATE v, NIVEDlrA JAIN (A.N. Sen, J.) 775

"(1) The Council may prescribe the minimum standards A
of medical education required for granting recognised
' medical qualifications (other than post-graduate
medical qualifications) by Universities or medical
institutions in India.

(2} Copies of the draft regulations and of all subsequent B
amendments thereof shall be furnished by the Council
to all State Governments and the Council shall, before
submitting the regulations or any amendment thereof,
as the case may be, to the Central Government for
sanction, take into consideration the comments of any
State Government received within three months from
c
the furnishing of the copies as aforesaid.

(3) The Committee shall from time to time report to the
Council on the efficacy of the regulations and may
recommend to the Council such amendments thereof as
D
it may think fit".

S. 20 deals with post-graduate medical studies and S. 20A deals
with professional conduct. Ss. 21 to 28 make provision for the
maintenance of Indian Medical Register, supply of copies of the
State Medical Registers to the Council by the State Medical E
Council, registeration in the Indian Medical Council Register,
removal of any name from the Indian Medical Register, provisional
registration, registration of additional qualifications, privileges of
persons who are enrolled on the Indian Medical Register and the
requirement of notification of change of address by every person
registered in Indian Medical Register. S. 29 casts an obligation on
F
the Council to furnish reports, copies of minutes, abstracts of its
accounts and other information that the Central Government will
require, to the Central Government. S. 30 empowers the Central
Government to institute a commission of enquiry whenever it is
made to appear to the Central Government that the Council is not G
complying with any provisions of the Act. S. 31 is intended to
offer protection in respect of acts done in good faith under the Act.
These sections do not have any material bearing on the question
involved in the present proceeding. S. 32 authorises the Central
Government to make rules to carry out the purposes of this Act, H
and sub-section (2) of S. 32 makes it ob1igatory that such rules
shall be laid before the Parliament. S. 33 of the Act provides :
776 SUPREME COURT REPORTS [1982) 1 S.C.R.

A "The Council may, with the previous sanction of the
Central Government, make regulations generally to carry I
out the purposes of this Act, and without prejudice to the
generality of this power, such regulations may provide for :

(a)
8

)

c I(j) the courses and period of study and of practical
training to be undertaken, the subjects of examination
and the standards of proficiency therein to be obtained
in Universities or medical institutions for grant of
recognised medical qualifications;
D (k) the standards of staff, equipment, accommodation,
training and other facilities for medical education;

i (I) the conduct of professional examinations, qualifications
of examiners, and the conditions of admission to such
examinations;
E
(m) the standard of professional conduct and etiquette
and code of ethics to be observed by medical practi-
tioners; and

(n) any matter for which under this Act provision may be
made by regulations.
F
S. 34 of the Act which happens to be the last section repeals the
earlier Indian Medical Council Act of 1933, providing for tbe
usual saving clause.

An analysis of the various sections of the Act indicate that
G the main purpose of the Act is to establish Medical Council of
India, to provide for its constitution, composition and its functions;
and the main function of the Council is to maintain the medical
register of India and to maintain a proper standard of medical
education and medical ethics and professional conduct for medical
H
practitioners. The scheme of the Act appears to be that the
Medica] Council of India is to be set up in the manner provided
M.P. STATE v. NlVEDirA JAIN (A.N. Sen, J.) 777

in the Act and the Medical Council will maintain a proper medical A
\
register, will prescribe minimum standards of medical education
required for granting recognised medical qualifications, will also
prescribe standards of post-graduate medical education and will
further regulate the standards of professional conduct and etiquette
and code of ethics for medical practitioners. The Act further
envisages that if it appears to the Council that the courses 8
of study and examination to be undergone in, or the profi-
ciency required from candidates at any examination held
by any University or Medical Institution do not conform to the
standard prescribed the Council or that the staff, equipment,
accommodation, training and other facilities for instructions and
training provided in such University or medical institution or in c
any college or other institution affiliates to the University do not
conform to the standards prescribed by the Council, the Council
wHI make a representation to that effect to the Central Government
and on consideration of the represention made by the Council, the
Central Government may take action in terms of the provisions
contained in S. 19 of the Act. The Act also empowers the Council D
to take various measures to enable the Council to judge whether
proper medical standard is being maintained in any particular
institution or not.

Now coming to the consideration of the question involved in
this appeal, it appears from the provisions of the Act that the E
authority of the Council extends to the sphere of maintaining pro-
per medical standards in medical colleges or institutions necessary
for obtaining recognised medical qualifications. By virtue of this
authority it may be open to the Council to lay down the minimum
eduational qualifications required of a student who may seek
admission into a medical college. In other words, the eligibility of F
a candidate who may seek to get admitted into a medical coltege
for obtaining recognised medical qualifications may be prescribed

-- by the Council. All the .candidates who are eligible fqr admission
into Medical Colleges or Institution for getting themselves qualified
as medical practitioners are entitled to seek admission into a Medi~
cal College or Institution. As to how the selection has to be made G
out of the eligible candidates for admission into the Medical College
is a matter which has necessarily to depend on circumstances and
·conditions prevailing in particular States. Though the question of
eligibility for admission into the medical curriculum may come
within the power and jurisdiction of the Council, the question
H
of selection of candidates 0ut of the candidates eligible to undergo
778 SUPREME COURT REPORTS (1982] 1 S.C.R.

A the medical course does not appear to come within the purview of
the Council. The observations of the Supreme Court in the case of
i
State of Kerala v. Kumari T.P. Roshana and Ors. (supra) quoted
earlier relate to the question of qualification or eligibility of students
for admission into a medical college and the said observations are
not intended to apply to a case of selection of students for admis-
B sion into a Medical College out of the eligible candidates.
As the number of candidates seeking admission to Medical
Colleges largely exceed the number of vacancies available to
such candidates for admission, some kind of procedure has

-
to be evolved for such selection. The process of selection of
candidates for admission to a medical college out of the candidates 1:
c eligible for admission for filling up the limited vacancies has no real
bearing on the question of eligibility or qualification for admission or
on the standard of medical education. The standard of medical
education rea11y comes into the picture in the course of studies in the
medical colleges or institutions after the selection and admission of
D candidates into medical colleges and institutions. Students who
satisfy the requirements of Regulation I become qualified or eligible
to seek admission into the Medical Course. Regulation I prescribes
requisities which have to be satisfied to enable every student to
become eligible or qualified to seek admission and the process of
selection comes thereafter.
Undoubtedly, under S. 33 of the Act, the Council is em-
E powered to make regulations with the previous sanction of the
Central Government generally to carry out the purposes of the Act
and such regulations may also provide for any of the matters men-
tioned in s. 33 of the Act. We have earlier indicated what are the
purposes of this Act. Sub-ss. (j), (k), (I) and (m) of the Act which
F we have earlier set out clearly indicate that they have no application
to the process of selection of a student out of the eligible candidates
for admission into the medical course. Sub-s. (j ), (k), and (l) relate
to post admission stages and the period of study after admission
in medical colleges. Sub-s. (m) of S. 33 relates to a post-degree
stage. Sub-s. (n) of S. 33 which has also been quoted earlier is
G also of no assistance as the Act is not concerned with the question
of selection of students out of the eligible candidates for admission
into medical eolleges. It appears to us that the observations of this
Court in the case of Arti Sapru v. State of Jammu and Kashmir and
Ors. (supra) which we have earlier quoted and which were relied on
H by Mr. Phadke, were made on such consideration, though the ques-
tion was not very properly finally decided in the absence of the
Council.
M.P. STATE v. NIVEDITA JAIN (A.N. Sen, J.) 779

We shall now consider the two relevant Regulations of the A
\
Council and they are Regulations I and II. The said Regulations
read:-

I. Admission to the Medical Course
o·
No candidate shall be allowed to be admitted to the
Medical Curriculum proper until :

(i) he has completed the age of 17 years at the time
of admission or will complete the age on or before
31st December of the year of his admission to the c
1st M.B.B.S. Courses. Provided that the candi·
dates who are admitted directly to the 5-I/2 years
integrated M.B.B.S. course should have completed
the age of 16 years at the time of admission or
will complete this age on 31st December of the
year of admission to the pre-medical course. D

(ii) he has passed :

(a) the Intermediate examination in S~nce of an
Indian University/Board or other recognised E
examining body with Physics, Chemistry and
Biology, which shall include a practical test in
these subjects ;

OR·
F
(b) the pre-professional/pre-medical examinatiuu
with physics, chemistry and biology, after
passing either the higb.er secondary school
examination, or the pre-university or an equi-
valent examination. The pre-professional/
pre-medical examination shall include a practi- G
cal test in these subjects :

OR

(c) the first year of the three years degree course
of a recognised university, with physics, che·
H
mistry and biology, including a practical test in
780 SUPREME COURT REPORTS ( 1982} 1 s.c.R.

A these subjects provided the examination is a
"University Examination". I
OR

(d) "B. Sc. examination of an Indian University.
8 Provided that he has passed the B. Sc
examination with not less than two of
the following subjects-Physics, Chemistry,
Biology (Botany, Zoology ; and further that he
has passed the earlier qualifying examination
with the following subjects, Physics, Chemistry,
c Biology and English.

Note : A student who has passed the B. Sc .. examina·
tion with one or more of the subjects men-
tioned earlier would be admitted to the
D Medical Course if he had passed the remaining
subjects of the Medical group (Physics, Che·
mistry and Biology) in the pre-professional/
intermediate examination.

(e) The Higher Secondary Examination or the
Indian School Certificate Examination which
is equivalent to 10+2 Higher Secondary
Examination after a period of 12 years study,
the last two years of study comprising of
Physics, Chemistry, Biology and mathematics
or any other elective subject with English at a
F level not less than the Core Course for
English as prescr, bed by the National Council
for Education Research and Training, after
the introduction of 10+2+3 years educational
structure as recommended by the National
Committee on Education.
G
Note : Where the course content is not as
prescribed for 1O+ 2 education structure of
the National Committee, the candidates will
have to undergo a period of one year pre-
H profession at training before admission to the
medical college
M.P. STATE V. NJVIDITA JAIN (A.N. Sen, J.) 781

OR A

(f) any other examination which, in scope and
standard, is found to be equivalent to the
intermediate science examination of an Indian
University-Board, taking physics, chemistry
and biology, including a practical test in each 8
.. of these subjects and English .

Note : (a) The pre-medical course may be conducted
either at Medical College or a Science
College. c
(b) After the 10+2 course is introduced, the
integrated course should be abolished.

II. Selection of Students. D

The selection of students to a medical college should
be based solely on merit of the candidate and for de~ermina
tion of merit, the following criteria be adopted uniformly
throughout the country :-
E
(a) In States, having only one Medical College and one
University/Board/Examining body conducting the quali-
fying examination, the marks obtained at such qualify·
ing examination be taken into con,ideration.
F
(b) In States having more than one University/Board/
Examining Body conducting the qualifying examination
(or where there are more than one medical college under
the administrative control of one authority), a competi-
tive entrance examination should be held so as to
achieve a uniform evaluation due to the variation of G
the standard of qualifying examinations conducted by
different agencies.

(c) Where there are more than one university/board con~ H
ducting the qualifying examination then a joint selection
board be constituted for all the colleges.
78~- SUPREME COURT REPORTS [1982] 1 S,C.R.

A (d) A competlttve entrance examination IS absolutely
necessary in the case of institutions of All India
character.

(e) To be eligible for competitive entrance examination,
candidate must have passed any of the qualifying
8 examinations as enumerated under the head-note
"Admission to Medical Course."

Provided that a candidate who has appeared in a
qualifying examination the result of which has not been
0 declared, may be provisionally allowed to take up the
competitive examination and in case of his selection for
admission to a medical college, he shall not be admitted
thereto unless in the meanwhile he has passed the qualify-
ing examination.

D Provided also that a candidate for admission to the
medical course must have obtained not less than 50% of
the total marks in English and Science subjects taken
together (i) at the qualifying examination (or at a higher
examination) in the case of medical college where the
admissions are made on the basis of marks obtained at
E these examinations or (ii) 50% of the total marks in
English and Science subjects taken together at the competi- --....__
tive entrance examination where such examinations are
held for selection.

Provided further that in respect of candidates belong·
F ing to Scheduled Castes/Scheduled 1 ribes the minimum
marks required for admission shall be 40% in lieu of 50%
for general candidates.

Where the seats reserved for Scheduled Castes and
Scheduled Tribes students in any State cannot be filled for
G want of requisite number of candidates fulfilling the mini-
mum requirements prescribed from that State then such
vacant seats may be filled up on all India basis with
Scheduled Castes and Scheduled Tribes candidates getting
not less than the minimum prescribed pass percentage or
H reverted to general category.
M.P. STATE V. NIVBDITA JAIN (A.N. Sen, J.) 783

The authorities (State Government and Universities) A
should arrange· .:special · coaching classes for Scheduled
Castes/Scheduled· Tribes candidates before the qualifying/
competitive examination to enable them to come up to the
appropriate standard for admission to the Medical
Courses.
8
Regulati01i I prescribes the eligibility of a candidate for admission
to medical courses. For maintaining proper standards in medical
colleges and institutions it comes within the competence of the ·
Council to prescribe the necessary qualification of the candidates
who make seck admission into the Medical Colleges. As this
Regulation is within the competence of the Council, the Council c
has framed this Regulation in a manner which leaves no doubt that
this Regulation is mandatory. The language of this Regulation,
\\hicb starts with the words "no candidate shall be allowed to be
admitted to the medical curriculum until. .. .. .", makes this position
• i
absolutely clear. On the other hand · the language in Regulation li
which relates to selection of ca:ndidates clearly goes to indicate that D
the Council itself appears to have been aware of the limitation on
its powers to frame any such regulation regarding the procedure or
process of selection of candidates for admission to · the Medical
Course out of the candidates qualified or eligible to seek such
admission. As, however, the question of selection of candidates for
admission into medical colleges out of the ~ligible candidates is a E
problem more or less common to all the States, the Council might
have considered it desirable to recommend certain guidelines which
may be followed in the matter of selection of students out of the
eligible candidates for admission into medical colleges. It is well-
known that all over India candidates who aspire to get admission
into medical colleges and who are otherwise eligible or qualified for F
admission to medical courses on the ~asis of the provisions contained
in Regulation I of the Council, cannot all be admitted into the
medical college or. institution for dearth of seats. By way of solu-
tion of this problem, ' the Council appears to have thought it fit to
suggest the procedure which will have the effect of selecting such
candidates on the basis of merit only. The procedure suggested is G
intended to do away with nepotism and favouritism and any unfair
practice in the matter of such admission, as the procedure recom-
mends merit to be the criterion. The Council itself appears to
. have apprehended that what is contained in Regulation II is mereiy
in the nature of a recommendation and this is evident from the
H
language used in Regulation n particularly when the same is COO•
784 SUPREME COURT REPORTS (I 982] ] S.C.R.

A trasted with the language used by the Council in Regulation I.
Regulation II begins with the words "seiection of students in a I
medical college should be based solely on merit". We are of the
opinion that the use of the words "should be" in Regulation II is
deliberate and is intended to indicate the intention of the Council
that it is only in the nature of a recommendation. Regulation
··o I which lays down the conditions or qualifications for admission
into Medical Course comes within the competence of the Council
)
under S. 33 of the Act and is mandatory and the Council has used
language to manifest the mandatory character clearly, whereas
Regulation II which deals with the process or procedure for selection
from amongst eligible candidates for admission is merely in the
c nature of a recommendation and directly in nature, as laying down
the process or procedure for selection for admission of candidates
out of the candidates eligible or qualified for such admission under
Regulation I. Regulation II recommending the process of selection
is outside the authority of the Council under S. 33 of the Act and
the Council has advisedly and deliberately used such ' language in
D Regulation II as makes the position clear and places the matter be-
yond any doubt. There is another aspect of the .matter which
also goes to suggest that Regulation H is merely directory
and does not have any mandatory force. Apart from reserva-
tions of seats for Scheduled Castes Scheduled Tribes catego-
ries and other reservations, reservation of seats is commonly
E made for being filled up by nomination. In the instant
case before us, it appears that the seats not exceeding three
per cent are reserved for the nominees of the Government of India
apart from the otr,er reservations. These nominees of the Central
Government do not have to sit for any pre-medical examination to
qualify themselves for select_ion to the medical colleges. They must
F of course be eligible for admission in the sense that h ey must have
the necessary qualification for admission in accordance with Regula
tion I. The candidates eligible under Regulation I are selected by
virtue of nomination and tJ1ere is no question of any pre-medical
test for such candidates nominated by the Central Government. If
Regulation II could be considered to be mandatory, there could be
G no such nomination of candidates by the Central Government.

Entry 66 in List I (Union List) of the 7th Schedule to the
Constitution relates to "co-ordination and determination of standard
H in institutions for higher education or research and scientific and
technical institutions". This entry by itself does not have any
bearing on the question of selection of candidates to the Medical
M.P. STATE ~·. NIVEDJTA JAIN (A.N. Sen, J.) 785

Colleges from amongst candidates who are eligible for such A
admission. On the other band, entry 25 in List H (Concurrent List)
of the same Schedule speaks of-"education, including technical
education, medical education in Universities, subject to entries 63,
64, 65 and 66 of List I.. ....... vocational and technical training of
labour". This entry is wide enough to include within its ambit the
.. question of selection of candidates to medical colleges and there is .B
nothing in the entries 63, 64 and 65 of List I to suggest to the
contrary. We are, therefore, of the opinion that Regulation If of
the Council which is mere1y directory and in the nature of a
recommendation has no such statutory force as to render the order
in question which contravenes the said regulation illegal, invalid
and unconstitutional. c
In the case of State Ana'hro Pradesh and Ors. v. Lavu
Narendranath and Ors. etc. etc.(i) this Court held at page 709-
"the executive have a power to make any regulation which should
have the effect of a law so long as it does not contravene any
legislation already covering the field ......... ". D
Under Art. 162 of the Constitution the executive power of a
State, therefore, extends to the matter with regard to which the
legislature of a State has power to make laws. As there is no
legislation covering the field of selection of candidates for admis-
sion to medical colleges, the State Government would, undoubtedly E
be competent to pass executive orders in this regard.

We shall now proceed to consider whether the order in ques-
tion is violative of Art. 15 (I) and (2) of the Constitution. The
High Court has held that as the order is violative of the Regulation
of the Council, the order cannot be supported under Art. 15 (4) F
of the Constitution. We have earlier held that the contravention
of Regulation II which is merely directory and in the nature of a
recommendation does not invalidate the order. As the order in
question is not liable to be struck down on the ground of contra-
vention of Regulation II of the Council, the order can clearly be
supported under Art. 15 (4) of the Constituion. G
It cannot be disputed that the State must do everything
possible for the upliftment of the Scheduled Castes and Scheduled
Tribes and other backward communities and the State is entitled to
,. make reservations for them in the matter of admission to medical H
(I) [1971] 3 SCR 699.
786 SUPREME COURT REPORTS [1982] I s.c.R.

and other technical institutions. In the absence of any law to the
contrary, it must also be open to the Government to impose such
conditions as would make the reservation effective and would bene-
fit the candidates belonging ~o these categories for whose benefit
and welfare the reservations have been made. In any particular
situation, taking into consideration the realities and circumstances
B prevailing in the State it will be open to the State to vary and
modify the. conditions regarding selection for admission, if such
modification or variation becomes nec~ssary for achieving the pur-
pose for which reservation has been made and if there be no law to
the contrary. Note {ii) of rule 20 of the Rules for admission
framed by the State Government specifically empower the Govern-
c ment to grant such relaxation in the minimum qualifying marks to
the extent considered necessary. In the Stare of Kerala and Anr. v.
N.M. Thomas (1) this Court by a majority had held that relaxation
of the Rules which required a lower division clerk to pass a depart-
mental test within a period of two years in the interest of the
employees belonging to Scheduled Castes and Scheduled Tribes was
D not unconstitutional or illegal. The relaxation made by the State
Government in the rule regarding selection of candidates belonging
to Scheduled Castes and Scheduled Tribes for admission into medi-
cal colleges cannot be said to be unreasonable and the said relaxation
constitutes no violation of Art. 15 (1) and (2) of the Constitution.
The said relexation also does not offend Art. 14 of the Constitution.
E It has to be ooticed that there is no relaxation of the condition
regarding eligibility for admission into medical colleges. The relaxa-
tion is only in the rule regarding selection of eandidates belonging
to Scheduled Castes and Scheduled Tribes categories who were
otherwise qualified and eligible to seek admission into medical
F co11eges only in relation to seats reserved for them. The respondent
Nivedita Jain and other deserving candidates may feel that because
of the reservations they are being deprived. of the opportunity of
getting their admission into medical colleges. It is. however. to
be noted that the validity of the reservations of seats for candidates
belonging to Scheduled Castes and Scheduled Tribes categories has
G not been challenged in the writ petition an9 very properly as in view
of Art. 15 (4) of the Constitution. In the case of Jagdish Saran and
Ors. v. Union of India and Ors.,(l) relied on by Mr. Phadke, this
Court has held that the Indian Constitution is wedded to equal pro-
tection and non-discrimination and Arts.l4, 15 and 16 are inviolable
H
(1) [1976] I SCR 906.
(2) [ 1980] 2 SCR 831.
M.P. STATE V. NIVEDITA JAIN (A.N. Sen, J.) 787

and Art. 29 (2) strikes a similar note though it does not refer to
A
regional restrictions or reservations ; Art. 15 further saves State's
power to make special provisions for women and children or for
advancement of socially and educationally backward classes and
reservations under Art. 15 (4) exist and are applied. This Court
further held at p. 855 as under : -·
B
"Coming to brasstacks, deviation from equal marks
will meet with approval only if the essential conditions set
out above are fulfilled. The class which enjoys reservation
must be educationally handicapped. The reservation must
be geared to getting ever the handicap. The rationale of
reservation must be in the case of medical students,
c
removal of regional or class inadequacy or like
disadvantage."

The view expressed by the Patna High Court in the case of
Amalendu Kumar v. State of Bihar (supra) that Art. 15 (l) of the
Constitution cannot be meaningful and will become illusory until D
minimum standards of proficiency are laid down and followed in the
matter of admission to Medical Colleges and if urld!>:!rvinJ
candidates are admitted into medical colleges, the standard of medical
education will go down, undeserving candidates admitted to medical
colleges would not be able to pass out and qualify as doctors and
there may be many drop-outs and doctors not pr0p!rly qtUWied
E
will prove a danger to society, appears to be untenable. It fails to
notice that there is no relaxation in the standard of medical
education or curriculum of studies in medical colleges for those
candiates after their admission to the college and the standard of
examination and the curriculum remains the same for all. There
F
may be drop-outs and many of these candidates may not qualify.
There may also be such failures and drop-outs in the case of other
candidates than those belonging to these categories. It is eminently
desirable that some kind of minimum standard for selection for
admission to medical colleges apart from eligibility should be there.
It h~s been represented to us by the Counsel for the State that the
G
State has, in fact, prescribed such a minimum standard for selection
of even the candidates belonging to Scheduled Castes and Scheduled
Tribes into medical collr ges.

The only other ground that was urged in support of the case
H
of the writ petitioners that the order in question is illegal and
invalid, is that the order violates Ordinance 54 of the University of
788 SUPREME COURT REPORTS (1982) 1 S.C.R.

A Jabalpur. No such ground has been taken in the writ petition.
Though the High Court has considered this argument. ;
the High Court does not appear to have come to any definite
finding on this question. This question, in the instant case, cannot
be said to be a question of pure law. In the affidavit which has
been filed on behalf of the University, it has been stated that the
8 Ordinance 54 has not been adhered to. In the absence of any plea
being taken in the writ pelition, we are of the opinion that the
respondent is not entitled to urge this point and rely on any alleged
contravention of Ordinance 54 of Jabal pur University.

In the result the order in question is not, therefore, liable to
c be struck down as being violative of Regulation II or of Art. 15 of
the Constitution. The appeal. therefore, succeeds. The Judgment
and Order passed by the High Court are hereby set aside and the
writ petition is dismissed. There will, however, be no order as to
costs.

D Though this appeal succeeds, yet in our opinion, justice
requires that the respondent Nivedita Jain who has already been
admitted to the Medical College on the basis of interim order
passed by the Court and has been prosecuting her studies should be
allowed to continue her studies and to continue to be student of the
Medical College where she is already studying. She is otherwise a
E qualified candidate and eligible for admission into the medical
course which she is now undergoing and the cause of justice does
not require that her studies should be interrupted and her career
should not be put in jeopardy. We, therefore, direct the authorities
concerned to treat the student Nivedita Jain as a regular student of
the college where she has been admitted and to allow her to
F continue her studies.

S.R. Appeals allowed.

•