DAMYANTI NARANGA v. THE UNION OF INDIA AND OTHERS February 23; 1971 cs. M. SIKRI, C.J., G. K. MITTER, K. s. HEGDE, P. JAGANMOHAN REDDY AND V.·BIIARGAVA, JJ.] Fundamental Rights-Freedom
of Association-Hindi Sahitya Sammelan, a registered society-Parliament enacting /egislgtion declaring S.mmelan as of national importance-Power (o frame rules to admit new members . without consent of original members of Society-I/ infringes · right to f.orm Association of original members oj Society-Transfe"ing properties of Society to Samme/an while Society kept in existence-If infringes right tp hold property~onstitution of India Article 19(1)(c) and (f) els. (4) and (5)-Hindi Sahitya Samme/an Act, 1962. The Hindi Sahitya Sammelan (hereinafter referred to as the Society) was a registered society . founded for the development and propagation of Hindi. After a number of years of its successful working differences arose between its members and this resulted in litigation. In 1956 the Uttar Pradesh legislature passed the U.P. Sahi_tya Sammelan Act, under which a statutory body was created under the name of Hindi Sahitya Sammelan. Tbis act was declared void by the Allahabad High Court as violating the freedom of association guaranteed under article !9(1)(c) of the COnstitution.
Thereafter, Parliament enacted the Hindi S.hltya .samrrelan Act, 1962 legislating uncle'r entry 63, list I of the Seventh Schedule declaring that "the institution known as the Hindi Sahitya Sammelan is an institution of national importance". By the Act a statu- tory sammelan was constituted as a body corporate by. the name of the Hindi Sahitya. Sammelan.
Under s. 4( !) of the Act the Sammr!.n was to consist of the first members of the Society and all persons who might become members thereafter in accordance with the rules made in that behalf by the first Governing Body to be constituted by the Central Gov- ernment by notification. The Act provided for vesting in the Sammelan of all property movable or immovable, of or belonging to the society. · F. Petitioru under Article 226 in the High Court and under Article 32 in this Court were filed· challenging the constitutionality of the Act mainly on the ground . !hat the ·Act interfered with the right of the petitioners to form aSSQCi.ati91q1Dder Article ·19(1)(c) of the Constitution. The High Colil:t held that since all the members of the society had also become members · pf th.e Sammelan under the Act, there was no infringement of the right to· form association. In the appeal and in the petition )lnder Article 32, the respondent contended that having declared the old Hindi Sahitya Sammelan, which was a society registered under the Societies Registration Act, 1860 as an institution of n.ational impohance, Parlia- ment has proceeded to le,islate .in resp~ct of it under entcy 63 of List I of the Seventh Schedule m order .that its administration may not suffer as a result of the ·quarrels that were aolng tnttr 16 between the members of the society; it was for this purpose that a tlrat Governing Body Wfts HI
constituted to take over the mil:nllgement temporarily; t!ie Act was deal1111ed to recon1tit11te the Sammelan in such a manner that it could wcl'k success- fully and without difficulties; and in making provis.ions for thi• pUl'PO•e all members of the old society were Included as members of the Sammelan c
DAMYANT!"NARANGA v. UNION (Bhargava, J.) so that their right to form association may not be taken away from them. Alternatively the respondent took uo the position that the ,Act nowhe're specifically laid down that the society shall stand dissolved while it con· stituted a· new Sammelan and thelrefore, it should be inferred that while the society still continued to exist in its original form .the law has brought into existence a new Sammelan to whicl\ all the functions and the pro- perties etc. of the society have been passed.
Allowing the petition and the appeal, HELD : Under s. Ji(!) (a) very wide powers are given•to the first governing body to make rules in respect of matters relating to member· ship including qualifications and disqualifications for membership of the Sammelan.
Under this power the rules framed could make provisions for admission of persohs as members whom the original members of society may never have liked to .admit in their Society. The number of such new members could even· be so large as to leave the original mem- bers in a small minority with the result that those members could become totally ineffective in the society. Thus the Sammelan which has come into existence is not identical·_-With the Sammelan which was a registered
society under the Societies Registration Act. This is clear interference with the right ~ form a society which has been exercised by the mem- bers of the Society by forming the Society with its constitution under which they were members. The Act does not merely regulate the admi·· nistration of the affairs of the Society; what it does is to alter the com· position of the society itself.
The result of this change in composition 1s that the members, who voluntarily formed the society are now com- pelled to act in that Association with other members who have been im· posed as members by the Act and in whose admission to membe'rship they had no say.
The right to form association necessarily implies that the persons forming the society have also the right to continue to be associated with only those whom they voluntarily admit in the association. Any
law by which members are introduced in the volµ11tary association with· out any option being given t,o the members to keep them out or any law which takes away the membership of those who have voluntarily joined it will be a law violating the right to form association. [847 H; 849 C-EJ The right guaranteed by Article 19 ( !) ( c) cannot be confined to the initial stage of forming an association. If it were to be so confined, the right would be meaningless bec.ame as soon as an association is formed, a law may be passed interfering with its composition so that the asso- ciation formed may not be able to function at all.
The right can be effective only if it is held to include within it the right to continue the association with its compasition as voluntarily agreed upon by the persons forming the association.
And, Article 19(4), on the face of it, cannot be called in aid to claim validity for the Act. .Therefore the provision contained in the Act for reconstituting the society into the Sammclan is void.
The whole Act becomes ineffecive in as much as the formation of the new Sammelan is the very basis for all the other provisions in the Act. '[849 F-H; 851 E] 0. K. Ghash and Another v. E. X. Joseph, [1963] Suppl. 3 S.C.R. 789; Stale of Madrasv. V. G. Row, [1952] S.C.R. 597 and V. G. Rowv. The State of Madras, A.LR. 1951 Mad. 147, referred to.
The alternative submission cannot be accepted as ensuring the validity of tile Act. First, . the specific ~ase taken by the respondent has been that the Act recon~titutes. the Society and does not create a separate and mdependent body m the 'form of a new Sammelan. Secondly, even if it be accep• 'd that a new Sammelan has been constituted, the question of (1971 J S.C.R.
. legislative competence of Parliament to . pass such a Jaw will arise. The Sammelan is itself. a body corporate and th!\! Sammelan has never been declared as an institution of national importance.
The only institution that was so declared was the society which, of course, earlier carried the same name as the new Sammelan. Parliament was, therefore, not com- . petent to leg;s!ate in respect of this newly constituted Sammelan which at no stage has 'oeen declared as an institution of national importance. Thirdly, if it were to be held that Parliament passed this Act so as to transfer all the properties and assets of the Society to the Sammelan, the Act would· contravene Article 19(1) (f) of the Constitution. The Samme- lan is a new, separate and distinct legal entity from the Society. The
Society is thus deprived of all its properties by the Act· and such a law <lepriv'ng the Society of its properties altogether cannot be held to be a rcasoneble restriction in the public interest on the right of the society to hold the property. The applicability of Article 19(1 (f) is on the assump- .tion that the old Society still exists as it was and yet its properties have been transferred to the Sammelan. If the Society still exists, so does its Governing Body in whom the property of the Society vested. The Act
thus deprives the members of the Governing Body of the property which still continued to vest in them in spite of the passing of the Act. This total deprivation of property instead of regulating the management of the affairs of the Society. or its property cannot clearly ne justified as a reasonable restriction in public interest. If the law is passed not merely for ensuring proper management and administration of the property, b~ D for totally depriving the persons, in whom the property vested, of their ri~ht to hold the property, the law cannot be justitldd as reasonable res- triction under Article 19(S), [852 B·H: 8S3 E·854 A]
Tht Bot1rd of Trustees, Ayurvtdlci and Unanl Tibia College, Dtlhl v. rile State of Del/ti di Am·. [19621 Suppl. I S.C.R. 156; referred to. ORIGINAL JURISDICTION : Writ Petition No, 91 of 1964.
Petition under Art. 32 of the Constitution of India for the enforcement of fundamental rights and Civil Appeal No. 358 of 1966. Appeal by special leave from the judgment aind order dated September 9, 1963 cif the Allahabad High Court in Civil Writ Petition No. 1885 of 1962.
J. P. Goyal and Raghunath Singh, for the petitioner (in W.P. No. 91 of 1964). A. K. Sen, J. P. Goyal and Raghunath Singh, for the appel- lants (in C.A. No. 358/66). B. Sen a;nd S. P. Nayar, for respondent No, 1 (in W.P. No. 91 of 1964) and respondents Nos. 3 and 4 (in C.A. No. 358 of 1966).
N. N. Sharma, for respondent No. 2 (in W.P. No. 91/64) and respondents Nos. 16 and 17 (in C.A. No. 358/66). c DAMYANTI NARANGA v. UNION (Bhargava, !.) 84J. The Judgment of the Court was delivered by
Bbargava, J.-This writ petition and the appeal challenge the validiiy of the Hindli Sahitya Sammelan Act No. 13 of 1962 (hereinafter referred to as "the Act"). The facts leading up to the passing of this enactment are that, in the year 1910, some eminent educationists assembled at Banaras and founded an As- sociation for the development of Hindi and its propagation throughout the country.
This Association was named as the Hindi Sahitya Sammelan. On the 8th January, 1914, it was registered as a Society under the Societies Registration Act No. 21 of 1860, with Head Office at Allahabad, under the name of Hindi Sahitya Sammelan. The rules and bye-laws of the Society laid down the objects of this Association and the manner of its wor- king. It had three classes of members, viz., special members (Vis- hisht Sadasya), permanent members (Sthayi Sadasya), and ordi- 11ary members (Sadharnn Sadasya). Under the bye-laws, apart from the original members constituting the Society, further mem- bers could be admitted under these three classifications on being elected by the workinp; committee of the Society.
Under the Rules and bye-laws of the Society, other bodies could be consti- tuted for carrying on activities of the Society. These Included a Governing Body, a Working Committee, a Hindi University Coun- cil, Literary Council
(Sah!tya Samit!), Library Committee, Parchar Samit! and Rashtriaya Bhasha Prachar Samit!, Through the ap;encies of these various Committees, the Society carried on the work of development and propagation of Hindi, of spreading the use of Devnagri script, of holding examinations, and of confer- ring Degrees for proficiency in Hindi. The Society owned lande.d properties and buildings at Allahabad as well as at some other places such as Wardha, and was holding considerable funds for Call'Ying on its activities. The Society worked very successfully for a number of years. It appears that in the year 1950, some differences ar~ between the members of the Society, and attempt was made to . alter the constitution of the Society.
While one sec?on want~ the: :Ute!ations, anothe.r section was opposed to it. This resulted m ht1gat1on. Three different suits were instituted in the civil Courts at .Allahabad in this connection and injunctions were sought by one party against the other.
Ultimately 'the Court appointed a Receiver. In view of these circumstances, the U.P. Legislature passed an Act known as the U.P. Hindi Sahitya Sammelan Act No. 36 of 1956, under which a statutory body was created under tty> name of Hindi Sahi~ya Sammelan, anif the word "Sammelan';
was defined as referrmg to the Hindi Sahitya Sammelan constitu- ted under the Act. Under that Act. Under that Act, the mana-· ·gement and properties of the original Hindi Sahitya Sammelan, ·A which was a registered Society, were to be taken over by the new statutory Sammelan.
That Act was, however, declared void by the Allahabad High Court on the ground that that Act had made the original Sammelan cease to exist and had provided for the constitution of a new Sammelan under its terms in which· the members of the original Sammelan had no say,''so that that Act infringed the right of the members of the criginal Sammelan of forming an association guaranteed by Art. 19 ( 1) ( c) of the Con- stitution. It was further held that that Act was not saved under Art.
19( 4) of the Constitution. Thereafter, the present ·Act, now challenged , in this writ petition and the appeal, was. passed by Parliament under Entry 63 of List I of the Seventh Schedule to the Constitution. The Act itself, in section 2, contained the necessary declaration to give legislative competence to Parliament under that Entry.
The Act first contained in section 2 a declaration in the fol- lowing words :- "Whereas the objects of the institution known as the Hindi Sahitya Sammelan which has its head office
at Allahabad are such as to make the instituaiion one of. national importance, it is hereby declared that the insti- tution known as the Hindi Sahitya Sammelan is an insti- tution of national importance."
Having declared this institution as an institution of national importance, the Act proceeded to define "Sammelan" as meaning the institution known as the Hindi Sahitya Sammelan incorporated under this Act, while the word "Society" was defined to mean "the Hindi Sahitya Sammelan which has its head office at Allaha- bad and is registered under the Societies Registration Act, 1860." Under section 4 ( 1 ) of the Act, the Sammelan was constituted which was to consist of the first members of the Sammelan lljlld all persons who may hereafter become members thereof in accordance with the rules made in that behalf. This statutory Sammelan was constituted as a body corporate by t.1ie name of the Hindi Sahitya Sammelan, and under sub-section (2) of section 4, it was to h_ave perpetual succession and a common seal with power, sub- ject to the provision of the Act, to acquire, hold and dispose of property and to contract and to sue and be sued by that name. The Head Office of the Sammelan was to be at Allahabad.
Under sub-s. ( 4) of section 4, the first members of the Sammelan were to consist of persons who, immediately before the appointed day.- (a) were special members (Vishisht Sadasya) of the So-
ciety; c DAMYANTI NARANGA v. UNION (Bhargava, J.) (b)(were life members (Sthayi ,Sadasya) of the Society. ( c) had been Presidents of the Society; or (d) were awarded the Mangla Prasad Paritoshik by
the Society. This sub-s. ( 4) of section 4 was amended retrospectively with effect from the date that the Act came into force by the Hindi Sahitya Sammelan (Amendment) Act No. I of 1963, and the
first members of the Sammelan were, under this amendment, de- clared to be- (a) all persons who, immediately before the appointed day, were members of the Society; (b) all persons who, before that day, had been Presidents
of the Society; and ( c) all persons who, before that day, were awarded the Mangla Prasad Paritoshik by the Society. It is not necessary to give in detail the other provisions of the Act, except that it may be mentioned that the Act provided for vesting of an proper1y, movable or immovable, or :belonging to the Society in the Sammelan, transferring all rights and Liabili- ties of the Society to the Sammelan, converting reference to the Society in any law to the Sammelan, and other similar necessary provisions. The Act itself did not make any provision for the future membership of the Sammelan; but, under section 12(1) (a), the first Governing Body of the Sammelan was directed to make rules in respect of matters relating to membership, includ- ing qualifications and disqualifications for membership of the Sammelan. The first Governing Body was to be constituted under section 8 and was to consist of a Chairman, a Secretary and 13 other members. This Governing Body was to be constituted by a notific~tion in the Official Gazette by the Central Government. The thirteen members were to be chosen as follows :-
(i) b one mem er to represent . the Ministry of the Central Government deahng with education; (ii) one member to represent the Ministry of the Central Government dealing with finance;
(iii) not more th.an three members from among the former Presidents of the Society; and (iv) the rem~ining nll!ll?er from among persons who are, 10 the op1mon of the Central Govern-
ment, eminent in the field of Hindi language or Hindi literature. It was this first Governing Body which was to make rules on all matters relating to membership of the Sammelan under sec- tion 12(1)(a) of the Act .. These rules were riot have effect until they were approved by the Central Government and were publi- shed by the first Governing Body in such manner as the Central Government may,. by order, direct. A copy of the rules was also to be laid before each House of Parliament.
Counsel for res- pondent No. 1 placed before us a copy of the rules which, accord- ing to him, have been made by the first Governing Body with the approval of the Government and have been published as re- quired. The Rules come into force pn 1st of February, 1971. The petition under Art. 32, and the petition under Art. 226, out of which the civil appeal arises, were both moved much earlier and long before these Rules were framed. These. petitions challenged the validity of the Act, without taking into account the actu~I Rules framed, mainly on the ground that he Act had interfered with the right of the p-etitioners to form association under Art. 19 (1 )( c) of the Constitution and was not protected by Art. 19 ( 4). In the petition before the Allahabad High Court, the Court held that, since all the members of the Society had also become members of the Sammelan under the Act, there was no infringement of the right to form association, so that the Act could not be declared invalid on that ground. The writ petition in this Court has been filed by only one member of the Society, while the petition in the High Court and the appeal against the judg- ment of the High Court, which is before us, were fhed by the original Hindi Sahitya Sammelan as one party and 72 members of that Sammelan joining as other petitioning parties.
In the civil appeal, thus,. the grievance that the Act has infringed the fundamental right has been put forward both by the Society it- self as well as by 72 of its members, including members of the Working Committee and the Governing. Body of the Society.
They have all come up to this Court against the decision of the High Court in this appeal by special leave. In the counter-affidavits filed· on behalf of the respondents in the writ petition before the High Court as well as in the writ peti- tion in this Court, the position taken up was that the Act, in fact, does not deprive the Society and its members of any rights which they had under the constitution of the Society and did not interfere with their right of association inasmuch as all
the members of the Society have been included as members of the Sammelan under the Act. The High Court, in fact, dismissed the writ petition on accepting this submission put forward on behalf of the respondents. In the arguments before us, learned counsel for c
c DAMYANTl NARANGA v. UNION (Bhargava, J.) re~pondent No. 1, however, took up. a different position and urged that the Act keeps the Society in-tact as it was_, while a new Sain- melan is constituted under the Act for the piirpose of managing the institution which has been declared as an institution of na- tional importance.
He put this aspect of the case in the fore- front, but, in the alternative, he also argued the case on the basis of the position taken up in the counter-affidavits in the High Court and in this Court as mentioned above. We consider it convenient .to first deal with the case as was specifically put forward in the ceounter-affidavits.
In these counter-affidavits, the position taken up is that, having declared the old Hindi Sahitya Sammelan, which was a Society registered under the Societies Registration Act, 1860, as an institution of national importance, Parliament has proceeded to legislate in respect of it under Entry 63 of List I of the Seventh Schedule in order that its administration may not suffer as a result of the quarrels that were going on inter-se between the members of the Society.
It was for this purpose that a first Governing Body was constituted to take over the mana- gement temporarily. The Act was designed to reconstitute the Sammelan in such manner that it could work successfully and without difficulties and, in making provision for this purpose, · all members of the old Society were included as members of the Sammelan, so that their right of forming association may not be taken away from them. The Society was never dissolved; instead of the Society remaining a body rej!istered under the Societies Registration Act, it was converted into a statutory Sammelan under the Act.
It, however, appears on examination of the provisions of the Act that the Sammelan under the Act is composed not only of persons, who were members. of the Society, but of others who have been given the right to be members of the Sammelan with- out the consent of the pre-existing members. Under sectio11 4( 4) itself, as retrospectively amended in 1963, apart from persons, who were members of the Society, others, who have been made members of the Sammelan, are all persons who, before that day had been Presidents of the Society and all persons who, before that day, were awarded the Mangla Prasad l!llritoshik by the Society. 1hese· members have been added without any option bein" avail- able to the existing members of the Society to elect or refuse to eleet them as members which was the right they possessed under the constitution of the Society itself.
Further under section 12(1)(a-'), very wide powers were given to the' first Go\-erning !3ody !o make.rule~ in respect. of m~tters relating to membership, mcludmg qualifications and disqualifications for membership of the Sammelan. Under this power, the rules framed could make 10–Ll 100 Sup Cl 7l
[l 971] 3 S.C.R. provision for admission of persons as members whom the original members of the Society may never have liked to admit in their Society. , The number of such new members could even be so large as to leave the original members in a small minority with the result that those members could become totally ineffective in the Society. Even in the Rules actually framed, there is provision for admission of members under various classes. In addition to the persons mentioned in section 4 ( 4) of the Act, Rule 6 . pro• vides for membership of persons who may become Sabhapatis of the Sammelan for any annual session subsequent to the Act com· ing into force, and persons who may be awarded Mangala Prasad Paritoshik subsequent to the Act
coming into force. Under Rules 7, 8, and 9, new Vishisht Sadasyas, Sthayi Sadasyas, and Sadharan Sadasyas can be admitted to the membership of the Sammelan on payment of Rs. 1,000/ – or Rs. 300/:, as the case may be. This admission to membership, according to the Rules, will be made by the new Kdrya Samiti to be elected under the Rules and-not by the Working Committee of the original members . of the Association. Further, under section 7(2) of the Act, the Governing Body of the new Sammelan is to consist of such num- ber of persons, not exceeding 55, as the Central Government may from time to time determine; and out of these, a number not ex- ceeding 7 are to be nominated by the Central Government from among educationists of repute and eminent Hindi scholars. These 7 nominees are to be chosen by the Central Government and on becoming members of the Governing Body, under Rule 11 they become members of the Sammelan. Under Rule 10, educational institutions can also be admitted as Sanstha
Sadasya~ of the Sammelan by the new Karya Samiti and, thereupon, a representa- tive of each of such institution has· a right to participate in the proceedings of the Sammelan, exercising all the rights of a mem- ber. It will, thus, be seen that the Sammelan, which has come into existence under the Act, is not identical with the Sammelan which was registered as a Society under the Societies Registration Act. 1860. Certain persons have been added as members by the Act and by the Rules. Admission of future members is no longer at the choice of the original members who had formed the Asso- ciation.
Persons, in whose admission as members the members of the Society had no hand, can become members and get the right of associating wiih them in the Sammelan, without the origi- nal members having any right to object. This is clear interfe- rence with the right to form an association which had been exer- cised by the members of the Society by forming the Society with its constitution, under which they were members and future mem- bers could only come in as a result of their choice by being elected by their WorkinJ! Committee. We are unable to agree with the High Court that the new Sammelan, as constituted under the Act, c
DAMYANTI NARANGA v. UNION (Bhargava, J.) is identical with the Society and that all the rights of form~g an association, which were being exercised by members of the Society, have been kept in-tact under the Act.
c It was argued that the right guaranteed by Article 19 ( 1) ~ c) is only to form an association and, consequently, any reg~lat10n of the affairs of the Association, after it has been formed, will not amount to a breach of that right. It is true that it has been held by thi~ Court that, after an Association has been formed and the right under Art. 19 ( 1 )( c) has been exercised by the members. forming it, they have no right to claim that its activities must also be p~rmitted to be carried on in the manner they desire. Those· cases are, however, inapplicable to the present case. The Act does not merely regulate the administration of the affairs of the Society, what it does is to alter the composition of the Society it- self as we have indicated . above. The result of this change in" composition is that the memhers, who voluntarily formed the: Association, are now compelled to act in that Association with: other members who have been imposed as members by the Act: and in whose admission to membership they had no say. Such alteration in the composiiion of the Association itself clearly inter- feres with the right to continue to function as members of the Association which was voluntarily formed by thci original
founders. The right to form an association, in our opinion, neces- sarily implies that the persons forming the Association have also the right to coniinue to be associated with only those whom they voluntarily admit in the Association. Any law, by which mem- bers are introduced in the voluntary Association without any option being given to the members to keep them out, or any law which takes away the membership of those who have voluntarily joined it, will be a law violating the right to form an association. If we were to accept the submission that the right guaranteed by Art. 19 ( 1) ( c) is confined to the initial stage of forming an Asso- ciation and does not protect the right to continue the Association with the membership either chosen by the founders or regulated ~y rules made by the Association itself, the right would be mean- mgless because, as soon as an Association is formed a law may be passed interfering with its composition, so that th; Association formed may not be able to function at all. The right can be eff.ec- tive O!li}'. if !t !s h~ld to inclu~7 within it the right to continue the Association with its composition as voluntarily agreed upon by the persons forming the Association. This aspect was recognised by this Court though not in plai? words, in the case of O. K. Ghosh and :4n£?ther v. E .• ~· Joseph( ). The Court, in that case, was cons1dermg the val1d1ty of Rule 4 (B) of the Central Civil Services (Conduct) Rules, 1955, which laid down that:
(l} [1963] Supp 3 S.C.R. 789. "No Government servant shall join or continue to be a member of any Servioo Association of Govern- ment servants : (a) which has not, within a period of six months
froin its formation, obtained the recognition of the Gov- ernment under the Rules prescribed in that behalf; or ( b) recognition in respect of which has been refused or withdrawn by the
Govemm~nt under the said Rules." This Court held :- "It is not disputed that the fundamental rights guaranteed by Art. 19 can be claimed by Government servants. Art. 33 which comers power on the Parlia-
ment to modify the rights in their application to the Am1ed Forces, clearly brings out the fact that all citi- zens, including Government servants, are entitled to claim the rights guaranteed by Art. 19.
'Thus, the validity of the impugned rule has to be judged on the basis that the respondent and his co-e.nployees are entitled to fonn Associations or Unions. It is clear that Rule
4-B imposes a restriction on this right. It virtually compels a Government servant to withdraw his mem- bership of the Service Association of Government Ser- vants as soon as recognition accorded to the said Asso:
ciation is withdrawn or if, after the Association is fanned, no recognition is accorded to it within six ;nonths. In other words, the right to form an Associa- tion is conditioned by the existence of the recognition
of the said Association by the Governni.ent. If the Association obtains the recognition and continues to enjoy it, Government servants can become members of the said Association; if the Association does not secure
recognition from the Government or recognition granted to it is withdrawn, Government servants must cease to be the members of the said Association. That is the plain effect of the impugned rule."
The Court in the above passage, thus, accepted the principle that the Government servants, who may have formed an AssociatiQ!l. could not be compelled to resign from it by imposition of a condi- tion of recognition of this Association by the Government and that if the Government servants are required to cease to be mem- bers that would be a violation of the· right under Art. 19 (l) ( c). irhe Court, of course, in that case, further proceeded lo examine whether such a restriction on' the right could be justified under· c
c DAMYANTI NARANGA v. UNION (Bhargava, J.) 85! ¥· 19 ( 4) or not. That case, thus, supports oitr view that the nght to form an Association includes the right to its continuance an~ any. law altering the composition of the Association compul- sorily will be a breach of the right to form the Association. This Court had also proceeded on the same basis in the case· of State of Madras v. V. G. Row(1). Though this as.Peet was not clearly brought out in the judgment, the pomt, which came up for consideration, was decided on the basis that persons forming an Association had a right under Art. 19 ( 1 )( c) to. see that the composition of the Association continues as voluntarily agreed to by them. That decision was given illl an appeal from a judgment of the High Court of Madras reported-1.n V. G. Row v. The State of Madras( 2). In the "High Court, this principle was clearly for• mulated by Rajamannar, C.J., in the following words :-
"The word "form" therefore, must refer not only to the initial commencement of the association, but also to the continuance of the association as such." The Act, insofar as it interferes with the composition of the Society in constituting the Sanimelan, therefore, violates the right of the original members of the Society to form an a8sociation guaranteed under Art. 19(1) (c).
Article 19 ( 4), on the face of it, cannot be called in aid t<> claim validity for the Act. Under Art. 19 ( 4), reasonable res- trictions can be imposed only in the interests of the sovereignty and integrity of India, or in the interests of public order or morality.
It has not been contended on behalf of the respon- dent, nor could it be contended that this alteration of the con- stitution of the Society in the manner laid down by the Acl was in the interests of the sovereignty and iniegrity of India, or in the interests of public order or morality.
Not being protected under Art. 19 ( 4), ii must be held that the provision contained in the Act for reconstituting the Society into the Sammelan is void. Once that section is declared void, the whole Act becomes ineffective inasmuch as the formation of the new Sammelan
is the very basis for all the other provisions contained in the Act. In view of this position emerging in the course of argu- ments, Mr. B. Sen put forward an entirely different and alter- native case before us which we have mentioned earlier.
The p05ition he took up was that the Act nowhere specifically lays. down that the Society shall stand dissolved, while it does con- stitute a new Sammelan. According to him, therefore, it should (1) [1952] S.C.R. 597.
(2) A.I.R.1951 Mad.147. be inferred that, while the Society still continues to exist in its original form, the law has brought into existence a new Sanune- lan to which all the functions, properties, etc. of the Society have passed under the Act.
There are three reasons why this 1lter- native submission cannot be accepted as ensuring the validity .of the Act. The first is that the specific case taken by the res- pondents has been that the Act recol\stitutes the Society
and does not create a separate and indepedent body in the form .of a new Sarnmelan. Secondly, even if it be accepted that a new Sammelan bas been constituted by the Act, the question will arise of the legislative competence of Parliament to pass such a law.
Constitution of Societies is under List II of the Seventh Schedule. Parliament purportei.: to exercise legislative power under Entry 63 of List I on the basis of a declaration that the. Hindi Sahity;1 Sammelan, AJlahabad was an institution of national importance.
The institution that was declared was the Society itself. It was not a case where the Society could be distingu- ished from some other institution which might have been de- clared as an institution of national importance There can, of course, be cases where a Society may be running. a college, a school or some other like institution, in which· case Parliament may declare that particular institution as of national importance. without declaring the Society as such In the present case, what section 2 of the Act did was to declare the Society itself as an institution of national importance and, consequently, Parliament became competent to legislate in respect of the Society. On the interpretation now sought to be put forward, the Act keeps that Society in-tact, but deprives it of all i'ts functions and pro- perties and transfers them to a newly constituted body, viz .. the Sammelan, as defined under the Ac't.
This Sammelan is itself a body corporate, and that Sammelan has never been declared as an institution of national importance. The only institutaion that was declared as of national importance w11s the Society which, of course, earlier, carried the same name as
the new Sammelan. Parliament was, therefore, not competent to legis- late in respect of this newly .constituted Sammelan which, at no stage, had been declared as an institution of national importance. The third reason why this submission must be rejected is that, if we were to bold that Parliament pased this Act so
as to transfer all the properties and assets of. the Society to the Sam- melan, the Act would contravene Art. 19(1)(f) of the Consti- tution. On this interpretation, what the Act purporis to do is
to take away all the properties of the Society, leaving the Society as an existing body, and give them to the new Sammelan. Thh Sammelan is a new, separate and distinct legal entity from the Society.
The Society is, thus, deprived of all itS properties by the Act. Such a law depriving the Society of its properties al- c .B c DAMYANTI NARANGA v. UNION (Bhargava, J.) together cannot be held to be a reasonable restriction in the public interest on the right of the Society to hold the property. The property, under section 5 of the Societies Registration Act, 1860, vested in the Governing Body of the Society. The mem- bers of the
Governing Body, therefore had the right to hold the property under Art. 19(1)(f) and they having been depri- ved of that property have rightly approached the Courts for re- dress of their grievance ..
In this connection counsel for the respondents relied on decision , of this Court in The Board of Trustees, Ayurvedic and Unani Tibia College, Delhi v. The State of Delhi and Another(1), where the Board of Trustees of the Ayurvedic and Unani Tibbia College, Delhi was dissolved by the Tibbia College Act, 1952, and the property, which had vested in the Board of Trustees, passed to the newly constituted Board under the impugned Act. The Court held that there was no violation of the funda-
mental rights .guaranteed by Art. 19(l)(f) or Art. That decision, however, proceed->..<! on the basis that the pro- perty of the · original Society registered under the Societies Re- gistration Act had vested in the Board of Trustees which had been dissolved and the property, thereafter, did not vest in the members of the Society in ·view of the provisions of the Act of 1860. In these circumstances, it was held that no one could complain that his right to property under Art. 31 or his right to hold the property under Art. 19(1)(f) had been violated by the impugned Act. In the present case, the applicability of Art. 19 (1 )(f) is being considered by us on the assumption that the old Society still exists as it was and, yet all its properties have been transferred to the Sammelan. If the Society still exists, so does its Governing Body in whom the property of the Society vested. The Act, thus, deprives the members of the Governing Body of the property which still continued to vest in them in spite of the passing of the Act.
This total deprivation of pro- perty, instead of regulating the management of the affairs of the Society or its properties, cannot clearly be justified as a reasO!!l- able restriction in public interest.
It is true that, at the time when the Act was passed, litigation was going on between the members of the Society, and the affairs of the Society were pro- bably in a mess. The remedy, however, could not lie in dep-
riving the Society of its property altogether. Reasonable res- trictions· could have been imposed so as to ensure the proper preservation of the property of the Society and its proper manage- ment. If the law is passed not merely for ensuring proper
management and administration of the property, but for totally deprivinJ? the persons,,. in whom the property vested, of their (I) [1962] Suppl. I S.C.R. 156. (1971] 3 S.C.R right to ho)d the property, the law cannot be justified as a reason- able restriction under Art. 19(5). Consequently, even on this alternative position taken up by counsel for the respondents,. the Act cannot be held to be valid.
As a result, the petition and the appeal are· both allowed with costs. The Act is declared- to be invalid, so that there will be restraint on the concerned bodies, including the Union Go· vernrnent, from takjng or continuing any action. under the Act. There will be one hearing fee.
R.K.P.S. Petition and Appeal a/lowed.