PUNJAB & HARYANA HIGH COURT
O.Chinnappa Reddy, Bhopinder Singh Dhillon, Gurnam Singh, Ajit Singh and Harbans Lal JJ.
Jaswant Kaur
Versus
State Of Haryana
Civil Writ Petition No. 3530 of 1976,
Decided On : MARCH 17, 1977
HARYANA CEILING ON LAND HOLDINGS ACT, 1972 - CONSTITUTIONALITY - SECTIONS 4(1), 4(5), 8, 12(3), 12(4), 20-A - VALIDITY - INTERPRETATION - SCOPE AND APPLICABILITY - LAND REFORMS - DIRECTIVE PRINCIPLES OF STATE POLICY - NINTH SCHEDULE TO THE CONSTITUTION - PROTECTION FROM ATTACK ON GROUNDS OF INCONSISTENCY WITH OR ABRIDGEMENT OF FUNDAMENTAL RIGHTS - WRIT PETITIONS - DISMISSAL - DIRECTIONS.
Fact of the Case:
Writ petitions challenging the vires of certain provisions of the Haryana Ceiling on Land Holdings Act 1972 (Act XXVI of 1972) on the ground of inconsistency with or abridgement of Fundamental Rights guaranteed by Part III of the Constitution. The Act received the assent of the President on 22.12.1972 and was published in the Official Gazette on 23.12.1972. The Act was included in the Ninth Schedule to the Constitution on 7.09.1974, and, thereby, it came under the protective umbrella of Art. 31-B of the Constitution and became immune from attack on the ground of inconsistency with or abridgement of any of the Fundamental Rights guaranteed by Part III of the Constitution.
Finding of the Court:
1. The provisions of the Haryana Ceiling on Land Holdings Act 1972 (Act XXVI of 1972) are not vague or mutually inconsistent and are, therefore, not ultra vires the Constitution. 2. Section 20-A of the Haryana Ceiling on Land Holdings Act, which bars the appearance of any legal practitioner before any officer or authority other than the Financial Commissioner, is ultra vires the Constitution and is, therefore, void.
Issues: 1. Whether the provisions of the Haryana Ceiling on Land Holdings Act 1972 (Act XXVI of 1972) are vague or mutually inconsistent and are, therefore, ultra vires the Constitution? 2. Whether Section 20-A of the Haryana Ceiling on Land Holdings Act, which bars the appearance of any legal practitioner before any officer or authority other than the Financial Commissioner, is ultra vires the Constitution?
Ratio Decidendi: 1. The provisions of a statute cannot be declared ultra vires on the ground that they are vague or mutually inconsistent. The principle of severability in application or separability in enforcement has been recognised by the Supreme Court when dealing with the contention that a law must be declared wholly void if it is constitutionally invalid in part. It has been held that if the valid and invalid provisions are distinct and separate and if what remains after striking out what is invalid is in itself a complete code independent of the rest, then it will be upheld notwithstanding that the rest has become unenforceable. 2. Section 20-A of the Haryana Ceiling on Land Holdings Act is ultra vires the Constitution as it is repugnant to Section 30 of the Advocates Act 1961, which declares that every Advocate whose name is entered in the common roll shall be entitled as of right to practice before any Tribunal or person legally authorised to take evidence.
Final Decision: All the writ petitions are dismissed subject to certain directions. Petitioners who have not so far filed their declarations are allowed one month's time from the date of the judgment to file their declarations. Petitioners who have filed their declarations may pursue the remedies available to them under the Act. All declarations will be dealt with by the authorities constituted under the Act in accordance with law, in the light of this judgment. Petitioners apprehending to be dispossessed under Section 22 of the Act but claiming to be entitled to the protection of Section 8 are allowed fifteen days time from the date of the judgment to file applications before the Collector seeking protection. Meanwhile their possession will not be disturbed. Section 20-A will not be enforced so as to prevent Advocates from appearing before any authority or officer functioning under the Act.
O.CHINNAPPA REDDY, J.
1. These writ petitions represent, perhaps, the final desperate attempt to stand up against the avalanche of land reforms initiated pursuant to the Directive Principles of State Policy. In these writ petitions, the vires of some of the provisions of the Haryana Ceiling on Land Holdings Act 1972 (Act XXVI of 1972) is in question. The Act received the assent of the President on 22.12.1972 and was published in the Official Gazette on 23.12.1972. The Act was included in the Ninth Schedule to the Constitution on 7.09.1974, and, thereby, it came under the protective umbrella of Art. 31-B of the Constitution and became immune from attack on the ground of inconsistency with or abridgement of any of the Fundamental Rights guaranteed by Part III of the Constitution. However, on 9.09.1974, in Saroj Kumari V/s. State of Haryana, 1975 0 PunjLR 407 a Division Bench of this court, who apparently were unaware of the inclusion of the Act in the Ninth Schedule, struck down certain provisions of the Act on the ground that those provisions offended the rights guaranteed by Part III of the constitution. They held that the provisions were also not saved by Art.31-A of the Constitution as those provisions which mainly related to "Family Unit", could not be said to be in furtherance of cls. (b) and (c) of Art. 39 of the constitution. The Division Bench placed reliance on the decision of a Full Bench of this Court in Sucha Singh Bajwa V/s. State of Punjab, AIR 1974 Punj 162, where similar provisions of the Punjab Land Reforms Act had been struck down. The decision of the Full Bench in Sucha Singh Bajwa V/s. State of Punjab has since been reversed by the Supreme Court in Civil Appeal No. 1040 of 1976: (reported in AIR 1977 SC 915). The Supreme Court has held that the provisions of the Punjab Land Reforms Act are saved both by Art. 31-A and Art. 31-B of the Constitution. In view of the decision of the Supreme court and in view of the circumstances that the Division Bench did not notice the inclusion of the Haryana Act in the Ninth Schedule, the decision in Saroj Kumari V/s. State of Haryana cannot any longer be considered to be good law. But, it was argued by Shri Anand Swaroop that the Haryana Act was unworkable as some of its provisions were vague and mutually inconsistent. He submitted that such provisions as were vague, inconsistent and, therefore, unworkable should be struck down and that neither Art. 31-A nor Art. 31-B of the constitution would save such provisions. He drew our attention to the fact that in Saroj Kumari s case, the Division Bench, in addition to holding that the provisions of the Act offended the rights guaranteed by Part III of the Constitution, also gave the following additional reason for striking down the provisions of the Haryana Act:-
"Apart from the reasons stated in the Full Bench judgment in Sucha Singh Bajwa s case, the provisions of the Act relating to the permissible area of the family suffer from the vice of vagueness and uncertainty and being incomplete and unworkable deserve to be struck down."
We nut a straight question to Shri Anand Swaroop whether, apart from Saroj Kumari s case, he could cite any judicial precedent or academic authority to support the submission that the provisions of a statute could be declared ultra vires on such grounds, Shri Anand Swaroop frankly confessed there was none. He, however, relied on the analogy of the situation arising out of a part of the statute being struck down as unconstitutional, where the whole of the statute has to be struck down if what remains cannot be enforced without alterations and modifications of the statute. We do not think that the situation is in the least analogous. The principle of severability in application or separability in enforcement has been recognised by the Supreme Court when dealing with the contention that a law must be declared wholly void if it is constitutionally invalid in part. It has been held that if the valid a
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