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REPORTABLE
IN THE SUPREME COURT OF INDIA
CIVIL APPELLATE JURISDICTION
CIVIL APPEAL NO. 5961 OF 2010
SWAMI VIVEKANAND COLLEGE
OF EDUCATION & ORS. ... APPELLANTS
Versus
UNION OF INDIA & ORS. ... RESPONDENTS
J U D G M E N T
SUDHANSU JYOTI MUKHOPADHAYA, J.
1. Appellants-institutions, which are recognised by the National Council
for Teacher Education (hereinafter referred to as the `Council’), impart teacher
training course (B.Ed.). On their request the `Council’ permitted additional
intake of students for such course without seeking accreditation and Letter
Grade B from National Assessment and Accreditation Council (NAAC).
Subsequently, the `Council’ framed “National Council for Teacher Education
(Recognition Norms and Procedure) Regulations, 2007 (hereinafter referred to
as `Regulations, 2007) by notification dated 10th December, 2007 introducing
Regulation 8(4) and 8(5) which the appellants unsuccessfully challenged
before the High Court.
2. As per Regulation 8(4) an institution is required to be accredited with
the NAAC with a Letter Grade B, whereas as per Regulation 8(5) those
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institutions which had been granted additional intake in B.Ed. and B.P.Ed.
teacher training courses after promulgation of the Regulations, 2005 i.e. 13 th
January, 2006 are required to get themselves accredited with the NAAC with a
Letter Grade B before Ist April, 2010.
3. The validity of Regulation 8(4) and 8(5) was challenged by the
appellants on the following grounds:
(i) Their right to establish and run their institutions enshrined under
Article 19(1)(g) of the Constitution of India stands curtailed;
(ii) they will suffer constitutional injury on account of the `Council’
outsourcing its statutory functions in the absence of statutory
authorisation for sub-delegation of the delegated power;
(iii) by giving a retrospective effect to the Regulations and
(iv) due to non-performance of statutory duties by the `Council’.
4. The Division Bench of the Delhi High Court held that the Regulation
8(4) merely puts a `condition’ for making an application that the applicant
should have itself accredited with the NAAC with a Letter Grade B; the Court
further held that the Regulation 8(5) is prospective in nature, being a
`condition’ imposed in continuation of additional intake.
5. During the pendency of the present appeal the `Council’ framed the
“National Council for Teacher Education (Recognition Norm and Procedure)
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Regulations, 2009 w.e.f. 31st August, 2009 (hereinafter referred to as the
“NCTE Regulations, 2009”) but as Regulation 8(4) and 8(5) is identically
worded so far as B.Ed. course, this Court by order dated 15th March, 2010
permitted the appellants to challenge the validity of new Regulation 8(4) and
8(5) of Regulations, 2009.
STAND OF THE APPELLANTS
6. Learned counsel for the appellants while contending that there was no
requirement for any approved institutions to get them accredited with NAAC
for enhancement of intake of seats in the course, the following submissions
were made:
(i) The `Council’ cannot sub-delegate its functions and duties
conferred upon it by the parent Act i.e. NCTE Act, 1993 to an outside
institution namely NAAC in absence of express authorisation by the
parent Act. Therefore, Regulation 8(4) ultra vires the NCTE Act, 1993
and Article 14 of the Constitution of India being against the principle
“delegates non potest delegare”.
(ii) The NCTE Act, 1993 does not authorise the `Council’ to frame
Regulations retrospectively; in absence of such power the delegatee the
`Council’ cannot make subordinate legislation retrospectively. The
requirement, therefore, contemplated under Regulation 8(5) being ex-
facie retrospective, taking away the right of the appellants to continue
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with the additional seats of B.Ed. course, is violative of Article 19(1)(g)
of the Constitution.
(iii) Regulation 8(5) and paragraph 6 of notice dated Ist October,
2008 issued by the `Council’ asking all institutions which were already
granted additional intake in B.Ed./B.P.Ed. courses after Ist January, 2006
to get themselves accredited with NAAC with Grade B certificate ultra
vires the NCTE Act, 1993 disturbing and altering the vested and accrued
fundamental rights of the institutions.
7. Learned counsel for the appellants referred to provisions of NCTE Act,
1993 and relevant Rules and the decisions of this Court which will be
discussed at an appropriate stage.
Stand of respondent-NCTE
8. Per contra, according to the learned counsel for the
respondent-`Council’ Regulation 8(4) does not amount to delegation of any of
the powers of the `Council’. It merely imposed a `condition’ required for
opening a new course or intake for students as empowered under the NCTE
Act, 1993. The Regulation 8(5) does not amount to giving effect from
retrospective date, as such power was already extending under Regulations,
2005.
9. He would further submit as follows:
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(i) The condition as stipulated in impugned Regulation 8((4) was
already existing even earlier in Regulations, 2005. Regulation 8(3) and
8(4) of Regulations, 2005 was relaxed for certain period vide notification
dated 20th July, 2006 and 10th December, 2007. Some of the institutions
had made applications to the Regional Committees of the `Council’ for
grant of permission or recognition for additional intake of seats in favour
of recognised course during the period from 21st July, 2006 to 10th
December, 2007. Their applications were processed and decided without
insisting upon the requirement of having three academic sessions of
running the course as was stipulated under Regulation 8(3) or having
accredited with NAAC with a Letter Grade B as was stipulated under
Regulation 8(4). Since, the conditions under Regulation 8(3) and 8(4)
were brought into force by Regulations, 2007, it was decided that those
institutions which have been granted recognition for enhancement of seats
without insisting upon the condition of having accredited with the NAAC,
have been directed to get themselves accredited with NAAC.
(ii) The condition stipulated under Regulation 8(4) does not amount
to sub-delegation of power but merely a `condition’ laid down for grant of
recognition of new course or for enhancement of additional intake in the
existing course. So far as processing, scrutinising and deciding upon an
application for recognition/permission for conducting teacher training
course is concerned, it is the `Council’ and its Regional Committees
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which are alone responsible and entrusted with discharging such functions
as enshrined under the Act.
(iii) The Regulation 8(5) only provides that the institutions who have
been granted recognition for enhancement of additional intake of seats
during the period of relaxation to obtain accreditation before Ist April,
2010 and the same is prospective in nature.
10. In this case the questions arise for determination are:
(i) Whether under Regulation 8(4) the `Council’ has sub-delegated
any of its functions and duties conferred by parent Act to NAAC; and
(ii) Whether Regulation 8(5) is retrospective in nature affecting
fundamental rights of appellants guaranteed under Article 19(1)(g) of
Constitution of India.
11. Before examining the contentions raised by the learned counsel for the
parties, it would be convenient to notice the relevant provisions of the NCTE
Act, 1993 and the Regulations framed thereunder.
12. The NCTE Act, 1993 was enacted to maintain standards of teacher
education with a view to achieve planned and co-ordinated development of the
teacher education system throughout the country. It was decided that the
`Council’ would be provided with necessary resources and capability to
accredit institutions of teacher education and provide guidance regarding
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curricula and methods. It was also decided to provide statutory powers to the
`Council’ with the objective of determination, maintenance and co-ordination
of standards in teacher education, laying down norms and guidelines for
various courses, promotion of innovation in this field and to establish a suitable
system of continuing education of teachers (see: Statement of Objects and
Reasons of the National Council for Teacher Education Act, 1993).
13. Section 12 of the NCTE Act, 1993 empowers the `Council’ to take all
steps for ensuring planned and co-ordinated development of teacher education
and for the determination and maintenance of standards of teacher education.
For the purposes of such functions the Council is empowered to evolve suitable
performance appraisal system, norms and mechanism for enforcing
accountability on recognised institutions under Section 12(k) which is as
follows:
“12(k) evolve suitable performance appraisal system,
norms and mechanism for enforcing accountability on
recognised institutions;”
14. For the purpose of ascertaining whether the recognised institutions are
functioning in accordance with the provision of the Act, the Council is
empowered to cause inspection of any such institution in such manner as may
be prescribed under Section 13 of the NCTE Act, 1993.
15. The `Council’ is empowered to recognise institutions offering course or
training in teacher education under Section 14. For opening a new course or
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training by recognised institutions the `Council’ is empowered under Section
15 to grant permission in such form and in such manner as may be determined
by regulations.
16. Under Section 32 the `Council’ is empowered to make regulations not
inconsistent with the provisions of the NCTE Act, 1993 and the rules made
thereunder. Clause (f) and (h) of sub-section (2) of Section 32 empowers the
`Council’ to frame regulations and to lay down `conditions’ for the proper
functioning of the institution and `conditions’ for granting recognition under
clause (a) of sub-section (3) of Section 14 and clause (a) of sub-section (3) of
Section 15 respectively, as evident from the said provisions and reproduced
hereunder:
“32.POWER TO MAKE REGULATIONS
(1) The Council may, by notification in the Official Gazette,
make regulations not inconsistent with the provisions of this
Act and the rules made thereunder, generally to carry out the
provisions of this Act.
(2) In particular, and without prejudice to the generality of
the foregoing power, such regulations may provide for all or
any of the following matters, namely :-
xxx xxx xxx
(f) conditions required for the proper functioning of the
institution and conditions for granting recognition under
clause (a) of sub-section (3) of Section 14;
xxx xxx xxx
(h) conditions required for the proper conduct of a new
course or training and conditions for granting permission
under clause (a) of sub-section (3) of Section 15;
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xxx xxx xxx”
17. In exercise of powers conferred under Section 32 the `Council’ framed
Regulations National Council for Teacher Education (Recognition Norms &
Procedure) Regulations, 2005 (hereinafter referred to as the “NCTE
Regulations, 2005”) notified by Notification No.F.49-42/2005-NCTE (N&S)
dated 27th December, 2005 published on 13th January, 2006. The NCTE
Regulation, 2005 were applicable to all matters relating to teacher education
programme, covering norms and standards and conditions for grant of such
recognition. Clause (3) and Clause (4) of Regulation 8 of NCTE Regulations,
2005 were as follows:
“8(3) An institution shall be permitted to apply for
enhancement of intake in a teacher education course already
approved after completion of three academic sessions of
running the course.
(4) An Institution shall be permitted to apply for
enhancement of intake in Secondary Teacher Education
Programme – B.Ed & B.P.Ed. Programme, if it has accredited
itself with the National Assessment and Accreditation Council
(NAAC) with a Letter Grade B developed by NAAC.”
18. It was stipulated that pending finalisation of new norms and standards,
the existing norms were to continue till then.
19. Subsequently, by notification dated 20th July, 2006 the `Council’ framed
“National Council for Teacher Education (Recognition Norms & Procedure)
(Amendment) Regulations, 2006 (hereinafter referred to as the “Amendment
Regulations, 2006) as under:
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“Now, therefore, in exercise of the powers conferred under sub-
section (2) of Section 32 of the National Council for Teacher
Education Act, 1993 (73 of 1993), the National Council for Teacher
Education hereby makes the following regulations, namely:-
1. Short Title and Commencement:
(1) These regulations may be called the “National Council for
Teacher Education (Recognition Norms & Procedure)(Amendment)
Regulations, 2006.”
2. A
pplicability(1) These regulations shall be applicable to all matters
pertaining to grant of recognition/ permission to conduct a
secondary teacher education programme in face to face mode
leading to B.Ed. degree or equivalent.
(2) They shall come into force from the date of their
publication in the Official Gazette.
3. E
xtent of Amendment(i) The appendix – 7 of the norms and standards which was
notified by NCTE Regulations, 2002 and retained in the NCTE
Regulations, 2005 shall be replaced by the appendix – 1 to this
amendment and be read as part thereof.
Note:- For enhancement of intake in the course where new norms
have been published after notification of the Regulations dated
27.12.2005, the conditions prescribed in Rule 8(3) and 8(4) of the
said Regulation shall not be applicable.”
It was followed by Regulations, 2007 framed by the `Council’ bringing back
the condition of accreditation of institution with NAAC with the Letter Grade
B as was prescribed under Regulation 8(4) of NCTE Regulations, 2005. Those
institutions who were granted additional intake in B.Ed and B.P.Ed. teacher
training courses after NCTE Regulations, 2005 i.e 13th January, 2006 were also
asked to get themselves accredited with NAAC with a Letter Grade B. Apart
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from the impugned Regulation 8(4) and 8(5), Regulation 8(3) of NCTE
Regulations, 2007 being also relevant are quoted hereunder:
“8(3) An institution shall be permitted to apply for
enhancement of course wise intake in teacher education
courses already approved, after completion of three academic
sessions of running the respective courses.
(4) An Institution shall be permitted to apply for
enhancement of intake in Secondary Teacher Education
Programme – B.Ed & B.P.Ed. Programme, if it has accredited
itself with the National Assessment and Accreditation Council
(NAAC) with a Letter Grade B developed by NAAC.
(5) An institution that has been granted additional
intake in B.Ed. and B.P.Ed. teacher training courses after
promulgation of the Regulations, 2005,i.e., 13.1.2006 shall
have to be accredited itself with the National Assessment and
Accreditation Council (NAAC) with a Letter Grade B under the
new grading system developed by NAAC before Ist April, 2010
failing which the additional intake granted shall stand
withdrawn w.e.f. the academic session 2010-2011.”
20. As stated earlier, during the pendency of the present civil appeal the
NCTE Regulations, 2009 was enacted with similar worded provisions under
Regulation 8(3), 8(4) and 8(5).
21. The National Assessment and Accreditation Council (NAAC) is an
autonomous body established by the University Grants Commission (UGC) of
India to assess and accredit institutions of higher education in the country. It is
an outcome of the recommendations of the National Policy in Education (1986)
that laid special emphasis on upholding the quality of higher education in India,
as appears from “Manual of Accreditation” (Revised Edition, January, 2004)
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published by National Board of Accreditation All India Council for Technical
Education, I.G. Sports Complex, I.P. Estate, New Delhi – 110 002.
22. The system of higher education in India has expanded rapidly during the
last fifty years and in spite of built-in regulatory mechanisms that ensure
satisfactory levels of quality in the functioning of higher education institutions,
there have been criticisms that the country has permitted the mushrooming of
institutions of higher education with fancy programme and substandard
facilities and consequent dilution of standards. To address the issues of
deterioration in quality, the National Policy on Education (1986) and the Plan
of Action (POA-1992) was made which spelt out the strategic plans for the
policies and advocated the establishment of an independent national
accreditation body. Consequently, the NAAC was established in 1994 with its
headquarters at Bangalore.
23. The Methodology for the assessment of a unit, the NAAC follows a
three-stage process which is a combination of self-study and peer review, as
follows:
(1) The preparation and submission of a self-study
report by the unit of assessment.
(2) The on-site visit of the peer team for validation of
the self-study report and for recommending the assessment outcome to
the NAAC.
(3) The final decision by the Executive Committee of
the NAAC.
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The self-study report validated by peers is the backbone of the whole exercise.
Manuals have been developed to suit different units of higher education, with
detailed guidelines on the preparation of the self-study report and the other
aspects of assessment and accreditation.
24. Section 12 of NCTE Act, 1993 deals with function of the Council.
Under Section 12(k) the `Council’ is required to evolve suitable performance
appraisal system, norms and mechanism for enforcing accountability on
recognised institutions which reads as under:
“12. Functions of the Council.- It shall be the duty of the Council
to take all such steps as it may think fit for ensuring planned and
co-ordinated development of teacher education and for the
determination and maintenance of standards for teacher
education and for the purposes of performing its functions under
this Act, the Council may –
(k) evolve suitable performance appraisal system, norms
and mechanism for enforcing accountability on recognised
institutions;
25. In fulfilment of the provisions under Section 12(k) of the NCTE
Act, 1993 i.e. to evolve suitable performance appraisal systems, norms and
mechanisms for enforcing accountability on recognised institutions and for
quality assurance of Teacher Education Institutions, the NAAC entered into an
“Memorandum of Understanding”(MOU) with the `Council’ for executing the
process of assessment and accreditation of all Teacher Education Institutions
coming under the provisions of NCTE Act, 1993. The efforts of `Council’ and
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NAAC are to ensure and assure the quality of Teachers Education Institutions
in the country complementary to each other. Combining the teacher education
and quality assurance, the NAAC developed the methodology for assessment
and accreditation of Teacher Education Institutions as appears from the
“Manual for Self-appraisal of Teacher Education Institutions”. The aforesaid
facts can be noticed from the documents supplied by the parties which
prescribe the methodology of assessment required to be followed by the
NAAC as per strategic plans, policies and memorandum of understanding
reached between NAAC and the `Council’.
26. Before we decide on the validity of Regulations 8(4) and 8(5), we must
first deal with the law as laid down by this Court in different decisions with
regard to the power of a delegate of a legislature, such as the Council in this
case, to make rules and regulations. In Hamdard Dawakhana and Another v.
Union of India and Others [AIR 1960 SC 554], this Court held:
“…..Thus when the delegate is given the power of making rules and
regulations in order to fill in the details to carry out and subserve the
purposes of the legislation the manner in which the requirements of the
statute are to be met and the rights therein created to be enjoyed it is an
exercise of delegated legislation…..”
Thus, a delegate of the legislature is conferred with the power to make rules
and regulations to carry out the purposes of the legislation and such rules and
regulations are called delegated legislation or subordinate legislation.
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27. This Court has also laid down the grounds on which such delegated
legislation or subordinate legislation can be challenged in the Court. In Indian
Express Newspapers (Bombay) Private Ltd. and others v. Union of India and
Others [(1985) 1 SCC 641], this Court has observed in Para 75 at page 689:
“A piece of subordinate legislation does not carry the same degree of
immunity which is enjoyed by a statute passed by a competent
Legislature. Subordinate legislation may be questioned on any of the
grounds on which plenary legislation is questioned. In addition, it may
also be questioned on the ground that it does not conform to the statute
under which it is made. It may further be questioned on the ground that
it is contrary to some other statute. That is because subordinate
legislation must yield to plenary legislation. It may also be questioned
on the ground that it is unreasonable, unreasonable not in the sense of
not being reasonable, but in the sense that it is manifestly
arbitrary……”
28. Again in Clariant International Ltd. and Another v. Securities &
Exchange Board of India [(2004) 8 SCC 524], this Court held in
Para 63 at page 547:
“When any criterion is fixed by a statute or by a policy, an
attempt should be made by the authority making the delegated
legislation to follow the policy formulation broadly and
substantially and in conformity therewith.”
29. The grounds on which the validity of a delegated legislation can be
challenged have also been discussed at length in Vasu Dev Singh
and Others v. Union of India and others [(2006) 12 SCC 753] in
which the Court has reiterated the aforesaid law.
30. The aforesaid law laid down by the Court on the grounds of judicial
review of delegated legislation or subordinate legislation will have
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to be borne in mind while deciding the validity of Regulation 8(4)
made by the Council. In other words, if the Regulation 8(4) is in
broad conformity with the objects and policy of the Act and is not in
conflict with any statutory or constitutional provisions, the
regulation made by the delegate, namely, the Council, will have to
be held to be valid.
31. We find that the NCTE Act, 1993 was enacted with the object (i) to
achieve planned and co-ordinated development of the teacher education system
throughout the country and (ii) for laying down the proper maintenance of
norms and standards in the teacher education system; the `Council’ has been
empowered by the parent Act to regulate development of teacher education,
proper maintenance of norms and the standards.
Section 12(k) empowers the `Council’ to maintain teacher education, its
performance appraisal system and to lay down norms and mechanism for
enforcing accountability on recognised institutions.
Under Section 15 the `Council’ can determine as to which institution be
allowed to offer new course or training in teacher education; for which the
`Council’ is empowered under Section 32(2)(h) to prescribe `condition’ for
grant of such permission and recognition.
32. The `Council’ is also empowered to cause inspection of any institution
through any person under Section 13 of the NCTE Act, 1993.
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33. Combined reading of Section 12(k), Section 15 and Section 32(2)(h),
makes it clear that the `Council’ is empowered to frame a Regulation laying
down `conditions’ for proper conduct of a new course or training under clause
(a) of sub-section (3) of Section 15.
34. What will be the `condition’ to be laid down for starting a new course or
training or for increase in the intake of students can be determined only by the
`Council’ in view of clause (h) of sub-section (2) of Section 32. It can
prescribe the such `condition’, as it deems fit and proper with only rider that
such `condition’ should not be against any of the provisions of the NCTE Act,
1993 or Rules framed thereunder.
For example the `Council’ may prescribe a condition that the
qualification of a teacher should be a degree of a particular subject obtained
from a recognised University, to grant recognition to start a new course. If such
condition is prescribed it will not amount to delegation of its power to an
University to grant such degree.
In the case in hand under Regulation 8(4) the `Council’ having
prescribed a `condition’ for recognition that an institution accredited by NAAC
with a Letter Grade B is entitled to apply for enhancement of intake in
Secondary Teacher Education Programme-B.Ed. &B.P.Ed., it can not be held
to be sub-delegation of power, as contended by the appellants. The first
question is, thus answered in negative against the appellants.
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35. In the case of State Bank’s Staff Union (Madras Circle) vs. Union of
India and others reported in (2005) 7 SCC 584, Supreme Court noticed and
defined the expression “retrospective” as under:
“19. Every sovereign legislature possesses the right to make
retrospective legislation. The power to make laws includes the
power to give it retrospective effect. Craies on Statute Law (7th
Edn.) at p. 387 defines retrospective statutes in the following
words:
“A statute is to be deemed to be retrospective, which
takes away or impairs any vested right acquired under
existing laws, or creates a new obligation, or imposes a
new duty, or attaches a new disability in respect to
transactions or considerations already past.”
20. Judicial Dictionary (13th Edn.) by K.J. Aiyar,
Butterworth, p. 857, states that the word “retrospective” when
used with reference to an enactment may mean (i) affecting an
existing contract; or (ii) reopening up of past, closed and
completed transaction; or (iii) affecting accrued rights and
remedies; or (iv) affecting procedure. Words and Phrases,
Permanent Edn., Vol. 37-A, pp. 224-25, defines a “retrospective
or retroactive law” as one which takes away or impairs vested
or accrued rights acquired under existing laws. A retroactive law
takes away or impairs vested rights acquired under existing
laws, or creates a new obligation, imposes a new duty, or
attaches a new disability, in respect to transactions or
considerations already past.
21. In Advanced Law Lexicon by P. Ramanath Aiyar (3rd
Edn., 2005) the expressions “retroactive” and “retrospective”
have been defined as follows at p. 4124, Vol. 4:
“Retroactive.–Acting backward; affecting what is past.
(Of a statute, ruling, etc.) extending in scope or effect to
matters that have occurred in the past. — Also termed
retrospective. (Black’s Law Dictionary, 7th Edn., 1999)
` “Retroactivity” is a term often used by lawyers but
rarely defined. On analysis it soon becomes apparent,
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moreover, that it is used to cover at least two distinct
concepts. The first, which may be called “true retroactivity”,
consists in the application of a new rule of law to an act or
transaction which was completed before the rule was
promulgated. The second concept, which will be referred to
as “quasi-retroactivity”, occurs when a new rule of law is
applied to an act or transaction in the process of
completion…. The foundation of these concepts is the
distinction between completed and pending transactions….’
T.C. Hartley, Foundations of European Community Law, p.
129 (1981).
* * *
Retrospective.–Looking back; contemplating what is
past.
Having operation from a past time.
`Retrospective’ is somewhat ambiguous and that good
deal of confusion has been caused by the fact that it is used in
more senses than one. In general, however, the courts regard
as retrospective any statute which operates on cases or facts
coming into existence before its commencement in the sense
that it affects, even if for the future only, the character or
consequences of transactions previously entered into or of
other past conduct. Thus, a statute is not retrospective merely
because it affects existing rights; nor is it retrospective
merely because a part of the requisite for its action is drawn
from a time antecedent to its passing.” (Vol. 44, Halsbury’s
Laws of England, 4th Edn., p. 570, para 921.)”
Therefore, it is to be seen as to whether Regulation 8(5) takes away any
right of the appellants or impairs any vested right acquired by appellants under
the existing law or has created any new obligation in their part.
36. Regulations 8(3) and 8(4) were already in vogue since 13th January,
2006 when Regulations dated 27th December, 2005 came into effect. As per
Regulation 8(3) only after three academic sessions an institution was eligible to
apply for enhancement of intake of students in the course. Under Regulation
8(4) only such institution which had accredited itself with the NAAC with a
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Letter Grade B+ was entitled to apply for enhancement of intake of students in
the Secondary Teacher Education Programme, B.Ed. and B.P.Ed.
37. “The norms and standards” were prescribed under Regulation 8 of
Regulation 2002 as follows:-
“Norms and Standards for various teacher education programmes
(i) The Norms and Standards for various teacher education courses
are given in the Appendices 3 to 14 as indicated below which an institution offering
the said course is required to comply with.
(i) Norms and Standards for Pro School Appendix-3
Teacher Education Programme
(ii) Norms and Standards for Nursery Teacher Appendix-4
Education Programme
(iii) Norms and Standards for Elementary Appendix-5
Teacher Education Programme
(iv) Norms and Standards for Bachelor of Appendix-6
Elementary Education (B.El.Ed)
(v) Norms and Standards for Secondary Appendix-7
Teacher Education Programme
(vi) Norms and Standards for Master of Appendix-8
Education (M.Ed.) Programme
(vii) Norms and Standards for Master of Appendix-9
Education (M.Ed.) Programme (Part time)
(viii) Norms and Standards for Certificate in Appendix-10
Physical Education (C.P.Ed.) Programme
(ix) Norms and Standards for Bachelor of Appendix-11
Physical Education (B.P.Ed.) Programme
(x) Norms and Standards for Master of Appendix-12
Physical Education (M.P.Ed.) Programme
(xi) Norms and Standards for B.Ed. (Open and Appendix-13
Distance Learning System)
(xii) Norms and Standards for M.Ed. (Open and Appendix-14
Distance Learning System)
(ii) The norms and standards herein notified are minimum and
essential. The institution may strengthen further the physical
and instructional infrastructure.”
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The aforesaid “norms and standards” were notified by NCTE Regulations 2002
and retained in the NCTE Regulations, 2005. Appendix-7 was related to
“norms and standards for Secondary Teacher Education Programme”.
The norms related to Secondary Teacher Education Programme leading
to B.Ed. Degree (face-to-face) were in process of change. After finalization of
such norms relating to revision of Secondary Teacher Education Programme
leading to B.Ed. Degree Course (face-to-face) the NCTE enacted National
Council for Teacher Education (Recognition Norms and Procedure)
(Amendment) Regulations, 2006. By amended Regulation 3 the “norms and
standards”, as was stipulated in Appendix-7 was replaced by Appendix-1 of the
Amended Regulations, 2006. The said Appendix-1 was made a part of the
main Regulations, 2005 dated 27th December, 2005. By a `Note’ below the said
amended Regulation 3 it was clarified that conditions prescribed under
Regulation 8(3) and 8(4) shall not be applicable in certain cases, as shown
hereunder:
“3. Extent of Amendment
(i). The appendix – 7 of the norms and standards which was
notified by NCTE Regulation, 2002 and retained in the NCTE
Regulations, 2005 shall be replaced by the appendix-1 to this
amendment and be read as part thereof.
Note:- For enhancement of intake in the course where new norms
have been published after notification of the Regulations dated
27.12.2005, the conditions prescribed in Rule 8(3) and 8(4) of the
said Regulation shall not be applicable.”
38. Thereby, the Regulations 8(3) and 8(4) remained in force for all
Teachers Education Courses, e.g. Elementary Teachers Education Programme,
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Bachelor of Elementary Education (B.El.Ed.), Standard for Secondary Teacher
Education Programme, Master of Education (M.Ed.) Programme etc., even
after amended Regulations 2006, but with a rider that in case new norms are
published for any such Course after notification of Regulations dated 27th
December, 2005, the conditions prescribed in Rule 8(3) and 8(4) of the
Regulations, 2005 dated 27th December, 2005 shall not be applicable for such
course.
39. Subsequently, when Regulations 2007 were enacted, the Regulations
8(3) and 8(4) of Regulations 2005 were retained. In the aforesaid
circumstances by Regulation 8(5) it was clarified that if any institution has
been granted additional intake in B.Ed. and B.P.Ed. teachers training courses
after enactment of Regulations 2005 i.e. 13th January, 2006, such institution is
required to be accredited itself with NAAC with a Letter Grade B.
It is needless to say that Regulations 8(3) and 8(4) of Regulations 2005
dated 27th December, 2005 having retained, it was always open to NCTE to
remind the institutions that they were required to follow Regulations 8(3) and
8(4), if were allowed additional intake after 13th January, 2006. For the reason
aforesaid the Regulation 8(5) cannot be held to be retrospective. The second
question is, thereby, answered in negative against the appellants.
40. Further, as plain reading of the Regulations 8(3), 8(4) and 8(5) makes it
clear that right of exemption, if any, accrued to an institution in view of `Note’
23
below Regulation 3 of amended Regulations 2006, has not been taken away
nor impaired any vested right acquired by any institution and as no new
obligation on the part of any institution has been created, they being governed
by Regulations 8(3) and 8(4) since 13th January, 2006, the Regulation 8(5)
cannot be held to be retrospective. The Regulations 8(3), 8(4) and 8(5) having
nexus with maintenance of standards of teacher education and to make
qualitative improvement in the system of teacher education by phasing out sub-
standard teaching, the validity of Regulation 8(4) and 8(5) cannot be
questioned. In absence of any merit, the appeal is dismissed but there shall be
no order as to costs.
……………………………………………….J.
( R. V. RAVEENDRAN )
………………………………………………J.
( A.K. PATNAIK)
……………………………………………….J.
( SUDHANSU JYOTI MUKHOPADHAYA)
NEW DELHI,
OCTOBER 12, 2011.
