# SUI- REME COURT REPORTS (1962) SUPP. S'ARDAR SYEDNA l'AHER SAIFUDDIK SAHEB v. THE STATE OF BO'.\IBAY

- **Citation:** [1962] Supp. 2 S.C.R. 496
- **Court:** Supreme Court of India
- **Decided:** 1962
- **Bench:** B. P. Si~llA c. J, A. K. Sarkar, K. c. DAS GUP'l'A, N. Rajaoopala Ayyanoau, J. R. Mun110LKAR
- **Source:** https://unisonlegal.in/judgment/supreme-court-of-india/sui-reme-court-reports-1962-supp-s-ardar-syedna-l-aher-saifuddik-saheb-v-the-2322
- **Pages:** 59

## Headnote

Excommunication, Pret·enlion of-Enactment-Conalituticnal rolidity-Fundamrntal rights of membua of Dawoodi
Bohra r.cmmunity and its religious Brad, if infringtd-Bomhay
l:'ret·en:ion of Excommunication Act, I949(Bom. 42 oJ 1949), sa.
2, J-l'o1.stitution of ft,dia, Arts. 25, 26, 17.
By s.3 of the Bombay Prevention of Excommunication Act,
1949 (Born. 42 of 1949), it is provided thal "Norwithstanding
anything contained _in al\Y law, custom or usage for the time
being in force, to the contrary, no t'xcommunication of a mem·
bcr of any community shall be valid and shall be of any effect."
The preamble to the Act stated, inter alia, that in keeping with
the changing times and in the public intrrcst, it was expedient
to stop the practice of excommunication prevalent in certain
con1munitics and the definition of the word "community''
contained ins. 2 of the Act included the reJig;ous denomination of Dawoodi Bohras.
The pietilioner, who wou the religi·
ous head ,,f the Dawoodi Bohra community and trustee of its
property, challenged the constilutional validiry of the Act on
the ground thot it violated its fundamental rights guaranteed
by Arts. 25 and 26 of the Corutitution. Reliance was placed
on behalf of the petitioner on the decision of Judicial Committee of the Privy Council in Ila.an Ali v. Mansoor Ali,
(1947) L.R.75 I.A. I, to which he was a party, as r~ognising
his right a.< the 5lst Dai-ul-Mutlaq of the community to excommunicate any of its membcn under prescribed limits,
/leld, (Per Sarkar, Das Gupta and Mudholkar, JJ.,
Sinha, C. J., diaaenting), that the impugned Act
violated
Arts. 25 and 26 of the Cons1itution and was, therefore,
void.
It was evident from the religious faith and :enets of the
Dawoodi Bohra community that the exercise of the power ol
excommunication by its religious head on religioua grounds
formed part of the management of its affairs In matters of
religion and the impugned Act in making even ruch excommunication invalid infringed the right of the community under
Art. 26(b) of the Constitution.
H1J1G11 .41i v. .llaM<JOrali, (1947) L. R. 75 I. A. I,
nfc:ncd to.
"'
2 S.C.R.
SUPREME COURT REPORTS
497
It is well settled that that Arts. 25 and 26 of the Constitution protect not merely religious doctrines and belif'fs but
also acts done in pursuance of religion and thus bUarant~e
rituals and observances, ceremonies and modes of worship
which are integral parts of religion. What is essential p_art of
a religion or what~ts religious practice has to be judgerl m the
light of its doctrine and such practices as arc regarded by the
community as a part of iis religion must also be included in
them.
Commissioner of Hindu Religious Endowments, Madras
v. Sri Lakshmindra Thirtha Swamiar of Sri Shrur Mutt, [I 954]
S. C. R. 1005, Mahant Jagannath Ramanuj Das v. The State
of Orissa, [1954] S.C.R. 1046, Sri Venkataramana Devaru v.
State of Mysore,· [1958] S.C.R. 891 and Durgah Committee,
Ajmer v. Sye~ Hussain Ali, [1962] 1 S.C.R, 383, relied on.
The fundamental right under Art. 26(b) is not subjected
to preservation of civil rights and its only limitations are those
expressly mentioned by the Article itself i e. public order,
morality and health and those mentioned by cl. 2 of Art. 25
as has been held by this court. The fact that in the instant
case civil rights of an excommunicated person would bC affected by the exercise of the fundamental right under Art, 26(b)
can, therefore, be of no consequence nor could it be said that
excommunication was prejudicial to public order, morality and
health.
The impugned Act did not fall within Art. 25(2) (a.) nor
could it be said to be a law "providing for social welfare.and
reform" within the meaning of Art. 25(2)(b) of the Constitu·
tion. It barred excommunication even on religious ground'·'
and could not be said to promote social welfare and reform
even though it sought to prevent consequent loss of civil
rights.
Sri Venkataramana Devaru v. State of Mysore, [1958]
S.C.R. 895, referred to.
T

## Text

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496
SUI- REME COURT REPORTS (1962) SUPP.
S'ARDAR SYEDNA l'AHER SAIFUDDIK SAHEB
v.
THE STATE OF BO'.\IBAY
(B. P. Si~llA c. J., A. K. SARKAR, K. c. DAS
GUP'l'A, N. RAJAOOPALA AYYANOAU and
J. R. Mun110LKAR, JJ.)
Excommunication, Pret·enlion of-Enactment-Conalituticnal rolidity-Fundamrntal rights of membua of Dawoodi
Bohra r.cmmunity and its religious Brad, if infringtd-Bomhay
l:'ret·en:ion of Excommunication Act, I949(Bom. 42 oJ 1949), sa.
2, J-l'o1.stitution of ft,dia, Arts. 25, 26, 17.
By s.3 of the Bombay Prevention of Excommunication Act,
1949 (Born. 42 of 1949), it is provided thal "Norwithstanding
anything contained _in al\Y law, custom or usage for the time
being in force, to the contrary, no t'xcommunication of a mem·
bcr of any community shall be valid and shall be of any effect."
The preamble to the Act stated, inter alia, that in keeping with
the changing times and in the public intrrcst, it was expedient
to stop the practice of excommunication prevalent in certain
con1munitics and the definition of the word "community''
contained ins. 2 of the Act included the reJig;ous denomination of Dawoodi Bohras.
The pietilioner, who wou the religi·
ous head ,,f the Dawoodi Bohra community and trustee of its
property, challenged the constilutional validiry of the Act on
the ground thot it violated its fundamental rights guaranteed
by Arts. 25 and 26 of the Corutitution. Reliance was placed
on behalf of the petitioner on the decision of Judicial Committee of the Privy Council in Ila.an Ali v. Mansoor Ali,
(1947) L.R.75 I.A. I, to which he was a party, as r~ognising
his right a.< the 5lst Dai-ul-Mutlaq of the community to excommunicate any of its membcn under prescribed limits,
/leld, (Per Sarkar, Das Gupta and Mudholkar, JJ.,
Sinha, C. J., diaaenting), that the impugned Act
violated
Arts. 25 and 26 of the Cons1itution and was, therefore,
void.
It was evident from the religious faith and :enets of the
Dawoodi Bohra community that the exercise of the power ol
excommunication by its religious head on religioua grounds
formed part of the management of its affairs In matters of
religion and the impugned Act in making even ruch excommunication invalid infringed the right of the community under
Art. 26(b) of the Constitution.
H1J1G11 .41i v. .llaM<JOrali, (1947) L. R. 75 I. A. I,
nfc:ncd to.
"'
2 S.C.R.
SUPREME COURT REPORTS
497
It is well settled that that Arts. 25 and 26 of the Constitution protect not merely religious doctrines and belif'fs but
also acts done in pursuance of religion and thus bUarant~e
rituals and observances, ceremonies and modes of worship
which are integral parts of religion. What is essential p_art of
a religion or what~ts religious practice has to be judgerl m the
light of its doctrine and such practices as arc regarded by the
community as a part of iis religion must also be included in
them.
Commissioner of Hindu Religious Endowments, Madras
v. Sri Lakshmindra Thirtha Swamiar of Sri Shrur Mutt, [I 954]
S. C. R. 1005, Mahant Jagannath Ramanuj Das v. The State
of Orissa, [1954] S.C.R. 1046, Sri Venkataramana Devaru v.
State of Mysore,· [1958] S.C.R. 891 and Durgah Committee,
Ajmer v. Sye~ Hussain Ali, [1962] 1 S.C.R, 383, relied on.
The fundamental right under Art. 26(b) is not subjected
to preservation of civil rights and its only limitations are those
expressly mentioned by the Article itself i e. public order,
morality and health and those mentioned by cl. 2 of Art. 25
as has been held by this court. The fact that in the instant
case civil rights of an excommunicated person would bC affected by the exercise of the fundamental right under Art, 26(b)
can, therefore, be of no consequence nor could it be said that
excommunication was prejudicial to public order, morality and
health.
The impugned Act did not fall within Art. 25(2) (a.) nor
could it be said to be a law "providing for social welfare.and
reform" within the meaning of Art. 25(2)(b) of the Constitu·
tion. It barred excommunication even on religious ground'·'
and could not be said to promote social welfare and reform
even though it sought to prevent consequent loss of civil
rights.
Sri Venkataramana Devaru v. State of Mysore, [1958]
S.C.R. 895, referred to.
Tahu Saifuddin v. Tyebbhai Moo.aji, A. I. R. 1953 Born.
183, disapproved.
Per Sinha, C. J.-It was not <0rrcct to say that the
Privy Council in Hasana/i v. Mansoorali, held that the right
or the Dai-ul-M4tlaq to excommunicate a member of the
community was a purely religious matter.
The Dai was not
merely the head of a religious community but also the trustee
of its property.
While his actions in the purely religious
aspect could be no conccm of the rourts, 1thosc- touching the
civil rights of the members of the community were justiciable
i'nd liable to interference by the
l~islat4rc l\nd the judiciary.
1962
Sa1dar Syedf!a
Toher Saijuddin
Saheb
v.
Tiu State of Bombay
B•Jt11 S,;1J11a
TIM Seiftll/J1n
8oltt6
'·
Tiii s,_,, •I B -'•J
498 SUPREME COURT REPORTS [1962] SUPP·
The impuRned Act, thcreforr. in seeking to protrct the civil
right.s .of the members of the community was within the saving
prov1S1om of Art. 2.5(2)(b) of th• constitution sir.cc the right
of'.' rel.igious denomination under Art. 26(b) was subject to
legtslatton under Art. 25(2)(b) of the Constitutio~
Sri Venkataramana Demro v. Sta'I of Myaort, [1958]
S.C.R, 895, relied on.
Tht Commiasiuntr o/ llindu Religioua End<>u•ment8, Mad,
raa v. Sri Lakahmindm Thirtha Swamiar of Sri ShT1ir Mutt,
[1954] S.C.R. Hi05, considered.
Th< Durgah Committee, Ajmer v. Syed Huaaain Ali, [1962]
I S.C.R. 383, referred to.
Case-law discussed.
The Act had for its purpose the fulfilment of individuat
liberty of conscience ~uaranieed by Art 25(1) and sought to
implement Art. 17 of the Con"itution in attempting to save
an excommunicated person from virtually becoming an untouchable in his community and its constitutional validity
could not, therefore, he questioned.
Held, further. that the Act in pith and substance fell
within Eniries 1 and 2 of List Ill of the Legislative Listi of
the Constimtion Act of 1935, and there could be no doubt as
to the con1pettn( y of the Lrgislature in rnarting it.
Per Avyangar, J-The right of Dai-ul-Mutlaq to exercise
the right of exc0mmuniration against a member of the drnomination as recogni.ed by the Privy Council in lltJMJnali v .
.Jfan&00rali, could not be in doubt.
A denomination under Art. 26 and its members under
Art. 25 have the right to ensure ill existence by maintaininc
discipline and ensu1ing adherence to its tenet& and practices
bv such suitable action as excommunicatibn of those who
denied the fundamental bases of the religion. The consequence of such action must n"cessari1y involve the exclusion of
an excommunicated person from participation in the religious
life of the denomination including the use of places of wonhip
or burial grounds dedicated for the use of the members and
vested in the religious head as trustee for the denomination.
Dill v. Wataon, (1836) 3 Jones Rep. (Ir. Ex.) 4S aad
Jl'rt• Church o/ Scotlallcl v. Ovcrlou, [I~] A. C. 515, referred to.
It was not correct to say, in view of the ddinition of
the word 'excomm11nication' contained in the Act., that it
merely sought to save the civil righu of ·~ e_xcommun~~ted
penon and had no concern with ~C011111llUl•cat100 .., reh'IOllfi
2 S.C.R.
SUPREME COURT REPORTS
499
grounds entailing~ under the laws of the denomination, deprivation of civil rights.
The impugned Act by depriving the Dai of the right to
excommunicate and making its exercise a penal . offence struck
at the very life of the denomination and rendered it impo·
tent to protect itself against dissidents and schismatics and
thereby contravened Art. 25 and 26 of the Constitution,
The impugned Act cannot also to sustained as a
measure of social welfare and reform under Art. 25 (2) (b) or
under Art. l 7 of the Constitution.
Venkatarama Devaru v. State of Mysore, [1958] $.C.R.
895, distinguished.
The expression "laws providing: for social welfare and
reform" in Art. 25(2: (b) of the Constitution was not intended
to enable the legislature to "reform" a religion out of exis ..
tence or identity. The activities referred to in Art. 25(2)(a)
are obviously not of the essence of the religion nor was Art.
25(2)(b) intended to cover the essentials of a religion which
are protected by Art. 25(1).
Faith in the Dai-uJ.Mutlaq being an essenti:.1 part of
the creed of the denominatio;; that held it· together, the
impugned Act clearly contravened Art. 25(1) of the Constitu·
tion by tnking away his po\ver of excomunicate by which he
kept the denomination together and maintained the purity of
its fellowship.
OmGINAL JURISDICTION: ·Petition No. 128 of
1958.
Petition under Art. 32 of the Constitution of
India for enforcement of Fundamental Rights.
K. JI!. Munshi, R.J. Jo.•M, G.K. Jfunshi, T.S.N.
Diwariji, J.B. Dadachanji, S. N. Andtey, Rameshim.r
Nath and P. L. Vohra, for the petitioner.
JI .C. Set,alvad, Attorney General o.f India, C.K.
Daphtary, Solicitor·Generol of l"1dio. H.N .. Sanyal,
Additional Solicitor General of lndhi, B. {{en and
R.H. Dhehar, for the respondent.
l.N. Shroff, for the intervener.
1962. January 9~Sinha. C.J., delivered his
own Judgment. The Judgment of Sarkar, Das Gupta
and Mudholk!t.r, JJ., was delivered by Das Gupta, J.
AyY&ngar J. delivered a separate Judgment.
1962
Sardaf' Syulna
TalMr Saifudd;•
Saheb
••
11,, Slatt of s..,q,
11161
sw,,, s_,,4114
'Tlt.t Saifllddin
Sah.b
••
7),, 8'4u of B ,m1a_,
SinAa C.J.
600
SUPREME COURT REPORTS (1962] SUPP.
S1:<HA, C. J.-By this petition under Art. 3~
of the Constitution, the petitioner, wh') is the 5lst
Dai-ul-ltfutlaq and head of the Da.woodi
Bohra
Community. challenges the roustit u1 ic11al ity of the
Bombay Prevention of Excommu11il'ation Act,
19.W (Bombay Act XLII of Hl49) (hereinafter n·fer·
red to a.~ the Act) on the ground that the provisions
of the Act infringe Arts. 25 and 26 of the Constitution. The sole respondent in this oaso is the
State of Bombay.
The petition is founded on the following
allegation&.
The Dawoodi Rohra
Community
consista of Muslims of the Shia sect, holdinl! in
common with all members of that sect the heli< f
that there is one God, that Mohamm•d
is His
Prophet to whom Ho revealed th" Holy Koran ;
that Ali, the son-in-law of Mohammad, was the
Wasi (exec·utor) of the Prophet, and that the said
Ali succeC'ded the Prophet by Nas-e-Jali.
Tho
Dawoodi Bohras believe that th" said Ali
was
succeeded by a line of Imams, each of whom io
turn was appointed by Nas-e-Jali by his lmmediat<>
predecessor. The Shia sect itself l.ecame di"idPct
into two sub-seota, known respectively as bmai/i.-
and Ima Asharia. The Dawoodi Bllhras belong to
the former sect, and believe that owing to perser.ution
Imam Tyeb (the 21st llfam) went into
seolu'sion and that an Iman from his line "'ill
appear, it being their belief that an I man always
exists although at times he may ho iovi&ihle to his
believers, while in seclusion ; that owing to tho
impen,ling seolusion of the 2 lst Imam {Imam
Tyeb) his predecassor, tho :!0th Imam, clir~cted hie
Hujjat (a. dignitary ranking next to an Imam), on,.
Hurra-tul-.Malaka, to appoint a J)ai, a Mazoon (11
dignitary next ton Dai) and a Muh~ir {a dignitary
ranking next to a Mazoon) to carry on the Duu·a.1
(miBBion) of tho /mJJm S•J long as th" Imam shoukf
remain in seclusion, and to take antl receive from
~e faithful an oath of allegiance. The Doia are
2S.C.R.
SUPREME COURT REPORTS
501
known ·as Dai-ul-Mutlaq.
The petitioner, as the
Head Priest of the community of Dawoodi Bohras,
is the vice gerent of Imam on Earth in seclusion.
The petitioner is a citizen of India. As Dai-ulMutlaq and the vicegerent of Imam on Earth
in seclusion, the Dai has not only civil powers as
head of the sect and as trustee of the property,
but also ecclesiastic11l powers as religious leader of
the community.
It is the right and privilege of
the petitioner as Dai-ul-Mntlaq to regulate the exercise of religious rights in places where such rights
and ceremonies are carried out and in which
religious exercises are performed. In his capacity
as the Dai-ul-Mutlaq, that is to say, as· relie:ious
leader as well as trustee of the property of the
community, one of his duties is to manage the
properties which are all under his directions and
control. He has 81so the power of excommunication. This power of excommunication is not an absolute, arbitrary and untrammelled power, but has
to be exercised according to the usage and tenets
of the community.
Save in exceptional circumstances, expulsion from the community can be
effected only at a meetmg of the Jamat, after the
person concerned has b•:en given due warning of the
fault complained of and an opportunity of mending,
and after a public statemeut of the grounds of
expulsion.
The result of excommunication properly and legally effected involves exclusion from
the exercise of religious rights in places under the
trusteeship of the Dai-ul-Mutlaq.
The petitioner
claims that as the head of the Dawoodi Bohra
community and as Dai-ul Mutlaq, he has the right
and power, in a proper case and subject t·o the
conditions oflcgal exercise of that power, to excommunicate a member of the Dawoodi Bohra
community, and this power of excommunication
is an integral part of the religious faith and belief
of the Dawoodi Bohra community. The petitioner
further affirms that the exercise of the right of
196!
S ardar S.JlldnO
Toher Saifudd.in
. ~alub
••
1.'he State of Bombay
Sinha C.J.
IHI
S•d.B•-
T•""s:tf-"itl
.. .
1l1 Stou if B.,.b.i>
.... c.J.
502
SUPREllE COURT REPOR'.1'5 [1902] SUPP.
excommunication is a matter of religion, and tha.t,
in any event, the right is an incident of the managtoment of the affairs of the Dawoodi Bohm
community in matters of religion. He also aHserts
that the Da.woodi Bohra. community constitutes a
religious denomination within the. meaning of Art .
26 of thp Constitution ; the said
right of the
petitioner to excommunicate a member of the
community, for reasons of which the petitioner is
the sole judge in the exercise of his position as the
religious head, is a guaranteed right under Arts. 25
and 26 of the Constitution.
The Bombay Legislature enacted the
Act,
which came into force on November l, 1049, The
petitioner asserts that the Act violates bis right
and pown, ai. Dai-ul-Mutlaq and religioll8 leader of
the Dawoodi Bohra community, to excommunicate
such members of the community as he may think
fit and proper to do; the said right of excommunication and the exercise of that right by the
petitioner in the manner aforesaid are matU,rs of
religion within the meaning of Art. 26( b) of the
Constitution.
It is submitted by tho pttitioner
that the said Act violates or infringes both the
Arts. 25 and 26 of the Constitution, and to that
extent., after the coming into force of tho Constitution, has become void under Art. 13 of
the
Constitution.
Tho petitioner claims that notwithstanding the provisions of the Act, he, as the
religious loader and Dai-ul-MuUaq of the community, is entitled to cxcomm~icatc any member of
the Da.woodi Bohr& community for an offence,
which according to his religious
sense justifies
expulsion; and insofar as tho Act interferes with
the said right of the petitioner, it is ultra virea the
Legislature.
The Act is also challenged on the
ground of legislative incompetence of the
then
Legislature of Bombay, inasmuch as it is contended
that such a power is not contained in any of tho
entries in the Seventh Schedule of the Government of India. Act, 1935.
2 s.c.R.
SUPREME COURT REPORTS
503
One Tayebhai Moosaji Koicha (Mandivala)
instituted a suit,. being suit No. 1262 of 1949, in the
High Court of Judicature at Bombay, praying inter
alia, for a declaration that certain orders of excom·
munication passed by the petitioner against him
prior to tho enactment of the Act were void and
illegal and of no ·effect, and that the plaintiff
continued to remain a member of the Dawoodi
Bohra community. The said suit was heard by
J.C. Shah, J.,
who.
by his ·judgment dated
February 21,
1952, held · that the Act was not
inconsi11tent with Art. 26 of the Constitution, and
was not ultra vires the Legislature of the Province
of Bombay. The petitioner, being dissatisfied with
the judgment of the learned Judge, preferred an
appeal that came up for hearing before the Court of
Appeal, composed of Chagla, C. J., and Bhagwati
J. By its judgment dated August 26, 1952, the.
Court of Appeal upheld the judgment of the learned
single Judge, though on different grounds. The
petitioner obtained leave from the High Court to
appeal to this Court, and ultimately filed the
appeal, being Civil Appeal No. 99 of 1954. During
the pendency of the appeal, the plaintiff.respondent aforesaid died and an application made on
behalf of his heirs for being brought on the record
was not granted by the High Court of 1.lombay.
This Court dismissed the said appeal on the ground
that the plaintiff having died, the cause of action
did not survive.
The petitioner further alleges that parties
inimical to him and to the Dawoodi Community
have written scurrilous articles challenging and
defying the position, power or authority of the
petitioner as the religious head of the oommunity;
the challenge to the petitioner's position and his
power to excommunicate as the head of the
Dawoodi Bohra community is violat.ive of the petitioner's guaranteed rights under Arts. 25 and 26 of
the Constitution. It is, therefore, claimed that it
Barda< Sydrul
T al&er Salfw/dl1t
SoJieb
v,
Tiu Stale of B1111Hr1'
Sinha c.J,
8.,o S)'Mno
ro1in BaifvdJi•
Solwb
v.
11.SW.•fBW.,,
SW. C • .1.
504 SUPREME COURT REPORTS [1962] SUPP.
is inoumbont upon the respondent, in its public
cha.raoter, to forbea.r from enforcing the provisions
of the Act against the
petitioner. By the petitioner's attorney's lettl'r,
annexure B to the
petition,
dated
July 18, 1958, the petitioner
pointed out to the respondent the unconstitutionality of thf' Act and
requested tho latter to
desist from enforcing tho provisions of tho Act
against the petitioner or against the Dawoodi Bohra
community.
In the premises, a. writ of .Mandamus
or a
writ in the nature of Mandamus or other
appropriate writ, qirection
or order under Art. 32
of the Constitution
was prayed for against the
respondent restraining it, its officers, servants and
agents from enforcing the provisionH of the Act.
The answer of the State of Bombay, the sole
respondent, is contained in the affidavit sworn to
by Shri V.N. Kalghatgi, Assistant Secretary to the
Government of Bombay, Home Department, to the
effect that the petitioner not having taken any
proceedings to excommunicate any member of the
community had no
cause of action
or right to
institute the proceedings under Art. 32 of the
Constitution; that it was not admitted that the
Dai-ul-Mutlaq, as the bead of the community, has
civil powers, including the power to excommunicate
any member of the community; that, alternatively,
such power is not in
conformity with the policy of
tba State, as defined in the Constitution; that the
petitioner, as the head of the community may have
the right to regulate religious rights at appropriate
places and occasions, but those rights do not
include tho right to excommunicate any person and
to deprive him of his civil rights and privileges;
and that, in any event, after the coming into effect
of the impugned Act, the petitioner has no such
rights of excommunication; that it was denied that
the right to excommunir,a.te springs from or has its
foundation in religion and religious doctrines, tenets
and faith of the Dawoodi Bohra community that, a.t
•
2 S.C.R.
SUPREME COURT REPORTS
505
any rate, it was denied that the right to excommu·
nicate was an essential part of the religion of the
community; that, altcrnati vely, assuming that it
was part of a
religious practice, it. runs counter to
public order,
morality and health. It was also
asserted that the impugned Act was a valid piece of
legislation enacted by a competent legislature and
within the limits of Art. 25 and 26 of the
Constitution; and that thP right to manage its own
affairs vested in a
feligious community is not an
absolute or untrammelled right but
subject to a
regulation in the interest of public order, mprality
and health. It was denied that the alleged right of
the petitioner to excowmunicate a member of the
community is guaranteed by Arts. 25 and-26 of the
Constitution. In the premises, it was denied that
the petitioner had any right to the declaration
sought or the relief claimed that the provisions of
the Act should not be enforced.
At a very late stage of the pendency of th1;
proceedings in this Court, in
April 1961, one
Kurbanhusein Sanchawala of Bombay, made an
applicatfon either for being added as a party to the
Writ Petition or, alternatively, for being granted
leilve to intervene in the proceedings. In hi;i
petition for intervention, he stated that he was a
citizen of India and was by birth a member of
the Dawoodi Bohra commun.ity and as such had
been taking an active part in social activities for
bettering the conditions of the members of the
cummunity. He asserted that mem hers of the
community accepted that up to the 46th Dai-ul11! utlaq there was no controversy, . that each one
of them had been properly
nominated and
appointed, but that a controversy arose as regards
the propriety and validity of the appointment of
the 47th Dia-ul-Jfut/,aq, which controversy conti.aued
all along until the present time so that opinioa is
divided amonzst the members of the Dawoodi Bohra
commuuity as to the validity of appointments and
Sard11r S,..tna
Taht1 Saifuddin
Solr1b
••
Tiu Stal• of Bomb47
Sinha C.J.
11111
s.-.s,.a.
TN S•ifud4in
8-
••
n. s..u •f "-"'
8/Mo C . .J.
506 SUI'REME COURT REPORTS [1962] SUPP.
existence of Dai·ul-Mul/aq, from the 47th 'to the 6lst
Dai-tJl-Mutlaq, including the present petitioner. The
intervener also alleged that but for the impugned
Act, the petitioner woul<l have loH no time in
excommunicating him. In the premises, he claims
that he is not ooly a proper but necessary pa1 ty to
the Writ Petition. Hi,, therefore, prayed to be
added as a part) -respondent, or, at any rate,
granted leave w intervene at the hearing of the
Writ Petition. We have to dispose of this petition
becaue no orders have been p8.88ed uLril the bee.ring
of the main case before us. In answer to the petitioner's claims, the intervener has raised the following grounds, namely, that the Hoi,y Karan does not
permit excommunication, which is against the spirit
of Islam; that, in any event, the Dai-Ill Mutlaq
had no right or power to excommunicate any member
of the community, and alternatively, that such a
right, assuming that it was there, was wholly "out
of date in modern times and deserves to he
abrogated and was rightly abrogate& by the said
Act."
I~ was further asserted that the alleged right
of excommunication was opposed to the universally
aooepted fundamentals of human rights as em·
bodied in the "Universal Declaration of Human
Rights." It Wiii! also &BSerted that the Act was
p881led by a competent legislature and was in consonance with the provisions of Arts. 25 and 26 of the
Coll8titution. The intervener further cfoims that
the rights to belief, faith and worship and the right
to a decent burial were baaio human rights and
were wholly inconsistent with
the
right of
excommunication claimed by the petitioner, and
that the practice of e:s:oommunication is opposed to
publio order and
morality; that the practice of
e:s:communioation was a secul&r activity aSBociated
with religious practice and that the abolition of the
said practice is within the saving cl. 2(a) of Art. 25
of the Constitution. It waa also asaerted that,
under the lllohamadan Law, properties attached to
.,
2 S.C.R.
SUPREME COURT REPORTS
507
institutions for religious and charitable purposes
vested in the Almighty God and not in the petitioner, and that ·all the members of the Dawoodi
Bohra community had the right to establish and
maintain such institutions, in consonance with Art.
26 of the Constitution ; that is to say that Art. 26
guarantees the right of the denomination as a whole
and not an individual like the petitioner. It was also
asserted that the .provisions of the Act· prohibiting
excommunication was in furtherance of public order
and morality and
was just and reasonable restriction on a sec1tlar aspect of a religious practice. The
petitioner challenged the right of the intervener
either to intervene or to be added as the party.
respondent. In his rejoinder to the petition for
intervention, the petitioner further alleged that the
practice of excommunication was essential to the
purity of religious denominations because it could
be secured only by removal of persons who weJ:t)
unsuitable for membership of the community. It
was, therefore, asse.rted that those who did not
accept the headship of the Dai-ul-Mutlaq, including
the petitioner, must go out of the community and
anyone openly defying· the authority of the Dai·'ld·
Mutlaq was liable to be excommunicated from the
membership of the community, entailing loss of
rights and privileges belonging to such members.
It was, therefore, claimed that the practice of
excommunication was, and
is, an essential and
integral part of the religion and religious belief,
faith and tenets of Dawnodi Bohra community,
which have been guaranteed by Art. 26 of the
Constitution.
It has been argued on behalf of the petitioner,
in support of the petition, that the Dawoodi Bohra
community, of which the petitioner is the religious
head, as also a trustee in respect of the proPE?rty
belonging to the community, is a religious denomination within the meaning of Art. 26 of the Constitu·
tion; that as such a religious denomination it is
1161.
Saur S(l!doa
Ta/u, Saifutltl1t1
Sall4b
v.
Thi Slate of Blllflba.1
Sinha C. J.
J~t
s .. u. s,..,,
T•~ .CIU/uJdin
Balltb
••
Tlw BloU •! 8-6•7
SWl4 C. J.
508 SUPREME OOURT REPORTS [1962] SUPP.
entitled to ensure its continuity by maintaininir the
bond of religious unity and dicipline, which woulrl
secure th~ continued acceptllnce by its adherents of
certain e&lential tenets, doctrines and practices; the
right to 8Uch coutinuty involves the right to enforce
discipline, if nece~sary by taking the extreme step
of excommunication; that the petitioner as the
religious head of the denominatio!l is invested with
certain powers, including the right to excommunicate dissidents, which power is a matter of religion
within the meaning of Art. 26(b) of the Constitution
that ·the impugned Act, insofar as it takes away
the pown to fnforce religious disoipline and thus
compels the denomination to accept dissidents as
having full rights as a member of the community,
including the right to use the properties and funds
of the commuity dedicated to religious use, violates
the fundamental rights of the petitioner guaranteed
under Art. 26.
In this connection, reliance was
placed on the decision of this Court in The Commis·
sion£r, Hindu Religious Endowmt:nts, Mr'llras v. Sri
Lakshmindra Thirtha Swamiar of Sri Shirur Mutt('),
which, it is contended, has laid down that the
guarantee under the Constitution not only protects
the freedom of opinion, but also acts done in pursu.
ance of such religious opinion, and that it is the
denomination itself which has a right to dt1termine
what are eBSential parts of its religion, as protected
by the provisions of Arts. :!5 and 26 of the Constitu·
tion. It was further contended that the riirht to
worship in the mosque belonging to the C'.lmmunity
and of burial in the graveyard dedicated to the
community were religious rights which could not
be enjoyed by a person who had b:ien rightly
excommunicated.
In~ofar as the Act took away
the right of the petitioner as the head of the com·
munity to excommunicate a particular member of
the community and thus to deprive him of the use
of the funds and property belonging to the commu-
( J) [ l~J S.C.R. 1005.
2 S.C.R.
SUPREME COURT REPORTS
509
nity for religious purposes, had the effect of depriving
the petitioner of his right ns the religious head to
regulate the right to the us~ of funds and property
dedicated to religious uses of the community. It
has also beeu contr>nded that religious reform, if
that is the intention of the impmmed Act, is outside
the ambit of Art. 25('!) (b) of the Con~titution.
The learned Attorney-General for th<' respondent contended on the other hand, that thu right
to excommunicate, whiuh has be0n renden·r! · i11 va.lid
by the impugned Act, WilS not a matter of religion
within the meaning of Art. :!G\b) of the Con;tibtion;
that what the Act really intended was to put a
stop to the practice inrlulgcd in by a caste or a denomination to deprive its membJr~ of their cidl rights
as such members, as distinguished from matters
of religion, which were withir1 th•.\ protection of
Art. :.!5 and 2G.
Altern 1tively, it WilS al;o argued
that even a~suming that excommunication was
concerned with matters of religion, the Act would
not be void becaius it was a matter of reform in
thil interest of public welfare. It was also argued that
there was no evidence on the record to show that
ex:communication was an essential matter of religion. The right to worship at a particular place or
the right of burial in a particular burial ground were
qllestions of civil natur~. a dispute in resp~ct of
which was within the cvgnizance of the Civil ()ourts.
·rhe legislation in questio:1, in its real aspects, was
a matter of social welfare and soci d reform and
n'.>t within the prohibitioni of Art. 2.5( I) or Art. 26.
E1:commllnication involving deprivation. of rights
of worship or burial and the like wcr•• not matters
of religion witliin the meaning of Art. 2G(b), and
Ii.tally, Art. 26(b) waa controlled by Art. 25(2) (b)
uf th3 Constitution, and, th'.Jrefore, even if excommunication touched oert~in religious matters, the
Aot,
insofar as it had abolisheJ it, was in
co111onance with modern notions of human dignity
1962
Sardar ')ytdna
Taher St1ifuddin
Saheh
v.
Tnt State of Bomb•7
Sinla C. J.
s., .. 8,.,,..
T- SaifutUi•
So.lib
'v.
T.\t S 1<14 of Bomb•J
BW..C,J,
510 SUPREME CO~TREPORTS [1962] SUPP.
and individual liberty of action even in matters of
religiouR opinion and faith and practice.
Shri Shroff, appearing for
the intervener,
attempted to reopen tho question whether the
~titioner as Dai-ul-Mutlaq, assuming that he had
been properly elected as such, had tho power to
excommunicate, in spite of the decision of their
Lordships of the Judicial Committee of tho Privy
Council in HatJan Ali v. Man..'>001" Ali ( ').
He also
supported the provisions of the impugned Act on
the grou11d that they were in furtherance of public
order. As we are not here directly concerned with
tho question whether or not the petitioner as tho
head of the religi0us community had thP power to
excommunicate, we did not hear Mr. Shroff at any
length with reference to that qu!'stion. We shall
proceed to determin the controversy in this c11se on
the aseumption that the petitioner bad that power.
We are only directly concemrd with the questions
whether the provisions of the Act, insofar as they
have rrndered invalid the practice of excommunica·
tion, are unconstitutional as infringing Art. 26(b},
and enacted by a legislature which was not competent to do so, as contended on behalf of the petitioner. We will, therefore, confine our attention to
those questions. Keeping in view the limited scope
of the c0ntroversy, we have first tO' determine the
ambit and effect of tho
impugned Act. The
Bombay Prevention of Excommunication
Act
(Bombay Act XLII of 1919) is an Act to prohibit
excommunication in the province of Bombay. Its
preamble, which shortly states the background of
the le;;islation, is in these terms :
"Whereas it has come to the notice of
Government that the fractice prevailing in
certain communities o excommunicating its
members is often followed in a manlier whi<.·h
result.a in the deprivation of legitimate right.
and privileges of it8 members ;
(1) [19f7] L.Jl. 75, J. A. J,
l
2 $.C.R.
SUPREME COURT REPORTS
511
And whereas in keeping with the spirit of
changing times and in the public interest it is
expedient to stop the practice; it is hereby
enacted is follows"
Tue definition of "Community" as given in s. 2(a)
would include the Dawoodi
Bohra community,
because admittedly its members are knit together
by reason of certain common religious doctrines.
and admittedly its members belong to the same
religion or religious creed of a section of the Shia
community of Muslims. The term 'community"
includes a caste or a sub-caste also. "Excommuni·
cation" has been defined. by s. 2 (b) as meaning
"the expulsion of a person fl'Om any community of
which he is member depriving him of rights and
privileges which are legally enforceable by a suit
of civil nature ......... ", and the explanation to the
definition makes it clear that the rights and privileges
within the meaning of the definition ~nclude the
right to office or property or to worship in any religious place or a right of burial or cremation, notwithstanding the fact that the determination of
such right depends entirely on the decision of the
question as to any religious riteH or ceremonies or
rule or usage of a community. By s. 3, excommunication of a member of a community has been
declared to be invalid and of no effect, notwithstanding any law, custom or usage to the contrary.
Any act of excommunication, or any act in furtherance of excommunication, of any member of a
community has been made a penal offence liable to
a puni8hment, on conviction, of fine which may
extend to one thousand rupees. The explanation
has made it clear that any person who has voted
in favour of a decision of excommunication at a
meeting of a body or an association of a particular
denomination is deemed to have committed the
offence made punishable by s. 4,
as aforesaid.
Sections 5 and 6 lay down the procedure for the
trial of an offence under the' Act, the limit of time
1962
Sartlor SyeJno
To.her l!Satfuddi11
Salreb
v.
Thi Slal• of BM11"'1
Sinha a. J,
1H3
8•44' B(l!in•
r .... s.v..uu.
B.Wt
••
r1u Sl•ll •/ B~
8i•"4 c. J.
512 SUPREME OOURT REPORTS [1962] SUPP.
within which the prosecution must be launched and
the necessity of previous sanction of the authority
indicated therein.
These, in short, are tho provisions of the
impugned Act. It will be noticed that the Act is a
culmination of tho hietory of social reform which
began more than a century ago with the fnactmt'nt
of s. 9 of Regulation YJI cf 1832 of the :Bengal
Code, which provided, i11ter alia. that the J:rn s of
Hindus and M'ijslims shall nl>t be permitted to ope·
rate to deprive the parties of any property to which,
but for the operation of such laws, they would have
been entitled. Those provisions were subsequently
incorporated in tlio [ndia Act (XXI of 1850)-known
as the Caste Disabilities Removal Act-which provided th~t a person shall not be dcprivt-d of his
rights or property hy reason of his or her renouncing
or exclusion from tho communion of any religion or
being dPprivcd of "~&te, and that an:v 011ch forfeiture
shall not be enfNr<·d as the law in the Court8. The
impugned Act, \],us, has given full dfect to modern
notions of individual freedom to choose one's way
of life and to do away with all those unduc and
outmoded interfen·nces wi,h liberty of conscience,
faith and belief.
It. is also aimed at .ensuring
human dignity and removing all those restrictions
which prevent a person from living his own life so
long 'Ul he did not interfere with similar rights of
others. The legislature had to take the logical final
step of creating a now offene<• by laying down that
nobody had the right to deprive others of their civil
rights simply because the latter did not conform to
a particular pattern of conduct. The Act, in subs·
ta.nee, has added a new offence to the penal law of
the country by i:enalising any action which has the
effect of depriving a pPrson of his human dignity
and rights appurtenant thereto. It also adds to the.
provisions of the Criminal Proced11 .. r Code and has
jQsistod upon the previous sanction of the prescribed
2 S.C.R.
SUPREME COURT REPORTS
513
authority as a condition precedent to launching a
prosecution for an alleged .offence against the provisions of the Act. In my opinion, ·therefore, the
enactment, in pith and substance, would come within
Entries 1 & 2 of List III of the Concurrent Legislative List of the Constitution Act of 1935. It is true
that "excommunication" does not, in terms, figure
as one of the entries in any one of the three lists.
The legislative competence of the Bombay Legislature to enact the Act has not been seriously
challenged before us; and, therefore, no particular
argument was addressed to us to show that the
legislation in question could not be within the
purview of Entries 1 & 2 of List III aforesaid.
What was seriously challenged before us was the
constitutionality of the Act, in the light of the
Constitution with particular reference to Arts. 25 &
26, and I shall presently deal with that aspect of
the controversy. But before I do that, it is convenient to set out the background of the litigation
culminating in the present proceedings.
The first reported ca.se in relation to some aspects
of Skia I mami Ismailis is that of the Advocate General
ex relation Dave Muhammad v. Muhammad Husen
HuBeni (1). That was a suit commenced befor.e the
coming into existence of the Bombay High Court,
on the Equity Side of the late Supreme Court,
instituted by an information and bill, filed by the
relators and plaintiffs, representing a minority of
the Kkoja community, ·against 'the defendants
representing tbe majority of that community. The
prayer in the action was that an account be taken
of all property belonging to or held in trust for the
Kkoja community of Bombay in the hands of the
treasurer and the accountant, respectively called
Lifukki and Kamaria, and other cognate reliefs not
relevent to the present controversy.
In that case,
which was heard on the Original side by Arnould J.,
judgment was delivered in November 1866, after a
(I) (m75) 2 Born. H.C.R. 323
11HJ2
Sartiqr Syetfna
I oh:~ Saifvddin.
Saheb
v.
Tf.e "tote of Bom-~Y
Sinha C. J.
lH2
S•t!.r8..J..
2'w s.v;;;;,.
IMo6
v.
n. Bkio •I B-J
~
sw..c. J.
514
SUPREME COURT REPORTS [1962] SUPP.
prolonged hearing. In that case, the learned Judge
went into a. detailed history of the several sects
amongst Muslims, including the Shia I mami I smaili8,
with pa.rtioula.r reference to the Aga Khan and his
relation with the Ja.mat of the Klwjas of Bombay.
In that case it was la.id down that there was no
public property impressed with a trust, either expreas
or impli<'d, for the benefit of the whole Klwja
oommunity and that Aga. Khan, as the spiritual
head of the Klwjas was entitled to determine on
religious grnnnds who shall or shall not remain
merubers of the Khoja community.
In that case,
the learned Judge, with reference to authoritative
texts, went into the detailed history of the two
sects of the Sunnis and Shi.as.
He discuEsed the
origin of the 1 wiailis as an offshoot of the Sh-ia,'J,
and
traced
the hereditary succeesion of the
unrevealed Imams in
unbroken line
down to
Agha Khan.
Except for its historical aspect, the
case does not deal with any mattt•r relevant to the
present controversy.
'l'he next reported case which was brought to
our notice is thl' case of the Advocate Grneml of
Bombay v. Yusufalli Ebrahim (I).