TMI Blog2020 (3) TMI 1447X X X X Extracts X X X X X X X X Extracts X X X X ..... fic actions. The most compelling evidence that the two concepts are materially distinct is the varied usage of the two phrases by the legislature. It is well settled that the first and best method of determining the intention of the legislature is the very words chosen by the legislature to have the force of law. In other words, the intention of the legislature is best evidenced by the text of the statute itself. However, where a plain reading of the text of the statute leads to an absurd or unreasonable meaning, the text of the statute must be construed in light of the object and purpose with which the legislature enacted the statute as a whole. Where it is contended that a particular interpretation would lead to defeating the very object of a legislation, such an interpretative outcome would clearly be absurd or unreasonable. To determine whether the interpretation arrived at on a plain reading of the provision truly defeats the object of the statute as a whole, we may briefly delve into the legislative history of the Architects Act. To answer the question whether reading Section 37 as a prohibition merely on the use of the title and style of Architect by unregistered indivi ..... X X X X Extracts X X X X X X X X Extracts X X X X ..... architect. Under the scheme of the Architects Act, only individuals possessing the statutorily recognised minimum educational qualifications can apply for registration as an Architect under the Act. Registration as an architect under the statute is thus a guarantee of possessing certain minimum educational qualifications. Section 37 prohibits unregistered individuals from designating themselves or referring to themselves as architects . The consequence of this regulatory regime is that when an individual is called an Architect a reasonable person would assume that they are a registered architect under the Architects Act and as a consequence possess the requisite educational qualifications and specialised knowledge associated with architects. If an individual is appointed to a post titled Associate Architect , Architect or Senior Architect , they undoubtedly refer to themselves and are referred to by others as Architects . Holding a post using the term Architect has the real-world consequence of being referred to as an architect. This is not a matter of mere nomenclature - If a government post is titled Architect or Associate Architect , such a person certainly use ..... X X X X Extracts X X X X X X X X Extracts X X X X ..... cts Act 1972 Architects Act merely prohibits the use of the title Architect by individuals not registered with the Council of Architecture Council under Chapter 3 of the enactment or alternatively whether Section 37 actually prohibits unregistered individuals from carrying out the practice of architecture and its cognate activities. In other words, does Section 37 permit individuals not registered with the Council to continue practicing the profession of architecture in India? As a corollary to this question, this Court is also called upon to determine whether a government post titled or styled using the term Architect can be held by individuals not registered with the Council of Architecture. 2. The present appeals arise out of three writ petitions filed by the first Respondent before the High Court of Allahabad. The first Respondent has been working as an Architectural cum Planning Assistant in the service of the third Respondent, the New Okhla Industrial Development Authority NOIDA since January 1988 and claims to possess a degree in architecture from the Indian Institute of Architects. NOIDA is an authority created Under Section 3 of the Uttar Pradesh Industr ..... X X X X Extracts X X X X X X X X Extracts X X X X ..... through direct recruitment, with a degree in Architecture and Town Planning and a degree in Architecture stipulated as essential qualifications for appointment as an Associate Town Planner and Associate Architect respectively. 6. A meeting was held by NOIDA on 20 March 2006 to decide whether a degree in Architecture and Town Planning and a degree in Architecture was necessary for candidates who were to be promoted to the posts of Associate Town Planner and Associate Architect. An opinion was sought from the Mukhya Nagar Gram Niyojak, Uttar Pradesh (Town and Country Planning Department, Uttar Pradesh). In a letter dated 22 December 2008, the Mukhya Nagar Gram Niyojak recommended that a degree or diploma in the relevant subjects should be an essential qualification for candidates seeking promotion. NOIDA subsequently sought the opinion of the state government on the same question. During this period, promotions to the post of Associate Town Planner and Associate Architect have continued to remain in abeyance, resulting in a situation where employees who have served for as many as twenty-five years being denied consideration for promotion. 7. Before the High Court of Allahabad, ..... X X X X Extracts X X X X X X X X Extracts X X X X ..... of an architect. 9. In disposing of the writ petitions, the High Court of Allahabad held that the mere nomenclature of the particular post will not in any way be said to violate the provisions of the Architects Act 1971 . Therefore, the High Court permitted NOIDA to continue referring to the Class II posts as Associate Town Planner and Associate Architect. The High Court further noted that as a central legislation, the requirements set out in the Architects Act could not be read into the Promotion Policy 2005 which is a Regulation formulated under a state legislation, namely the U.P. Industrial Area Development Act. Submissions 10. The Council of Architecture has challenged the decision of the High Court in holding that Section 37 of the Architects Act does not prohibit individuals not registered with the Council from practicing architecture in India. According to the Council, such an interpretation defeats the object and purpose of the Architects Act. It is submitted that: (i) The object of the Architects Act is to ensure that only qualified architects are permitted to provide architectural services for the purposes of construction and building activity in India; ..... X X X X Extracts X X X X X X X X Extracts X X X X ..... ruction of buildings in India. Therefore, the Architects Act regulates individuals registered with the Council and does not control the practice of activities undertaken by individuals falling outside the regulatory regime applicable to registered Architects. Scope of the present appeal 12. In the writ petitions before the High Court of Allahabad, the question before the court was whether the 2005 Promotion Policy adopted by NOIDA permitting candidates who do not hold a degree in architecture to hold the post of Associate Architect violated the provisions of the Architects Act. The answer to that question substantially turned on an interpretation of the Architects Act. Primarily, the issue is whether the Architects Act prohibits individuals not registered with the Council from holding of the title of architect or prohibits them from practicing the activities undertaken by architects. This is the question that we are called upon to answer. If Section 37 of the Architects Act prohibits individuals not registered with the Council from practicing the activities commonly undertaken by an architect, the 2005 Promotion Policy will violate Section 37 as it allows unregistered ind ..... X X X X Extracts X X X X X X X X Extracts X X X X ..... Corporation can regulate the profession and the practice of architects registered under the Architects Act, 1972 by insisting that the architects practising in Delhi and submitting plans for construction of buildings for the approval of the Corporation must possess licences issued by the Corporation. (Emphasis supplied) On the question of whether the Delhi Municipal Corporation could regulate architects already registered with the Council of Architecture, the Division Bench held: The Architects Act, 1972 is a special law dealing with the qualifications to be possessed by persons for being registered as architects and restricting the term architect or registered architects to such persons only. Since the possession of a registration certificate under the Architects Act, 1972 is regarded by Parliament as sufficient qualification for the practice of architects and since all related questions have been dealt with in respect of architects by the said Act, it became unnecessary for the Corporation to do so thereafter. The question before the High Court of Delhi was whether the Delhi Municipal Corporation could require that architects submitting plans for the construction ..... X X X X Extracts X X X X X X X X Extracts X X X X ..... ed persons calling themselves as architects which can result in untrained individuals being tasked with the critical work of construction. This may lead to unsafe buildings. Section 37 was enacted to protect citizens from being misled by untrained persons and mistakenly entrusting them with the task of construction. Even though the Single Judge undoubtedly recognised the need for trained and qualified architects, Section 37 was interpreted as creating a bar on individuals representing themselves to be qualified architects and not as creating a bar on untrained individuals practicing the tasks undertaken by architects. 15. The issue of using the nomenclature architect in government services has also arisen before the High Courts. In Tulya Gogoi v. Association of Architects (1999) 3 Gau LR 179 an order of the Government of Assam was challenged. The said order re-named the post of Architectural Draftsman P.W.D. as Junior Architect . The individuals whose posts were to be renamed had at the time obtained a diploma certificate in Architectural Assistantship which was not recognised by either the Central Government or the Council of Architects. The order was challenged by the A ..... X X X X Extracts X X X X X X X X Extracts X X X X ..... supplied) The High Court rejected the argument that the object of Section 37 to prevent misrepresentation by untrained individuals engaged in architectural activities only applied to private individuals and not government employees. The High Court observed that even where the Rules of service stipulated by the government provided for the Regulation of architects, the provisions of the Architects Act allowing for the registration and de-registration of architects provided an overarching regulatory framework to protect the integrity of the architectural profession. The Act ensures that individuals who did not possess a statutorily recognised qualification cannot refer to themselves as Architects . Crucially, the High Court observed that Section 37 did not carve out an exception for government employees, therefore the prohibition on the use and the title and style of architect contained in Section 37 applied to both private individuals and government employees. 16. Both the Appellant and the Union of India have relied on the decision of the Division Bench of the High Court of Madhya Pradesh in Mukesh Kumar Manhar and it would be pertinent at this juncture to discuss the judgm ..... X X X X Extracts X X X X X X X X Extracts X X X X ..... nd style of Architect. It does not prohibit a person, who is not a registered as an Architect with the Council of Architecture from carrying on or discharging any function that can be carried on by a registered Architect.... (Emphasis supplied) The High Court noted that both the Indian Medical Council Act and the Advocates Act expressly restrict the practice of medicine and law to individuals registered under the two statutes respectively. When examined in juxtaposition to these two statutes, the choice of the legislature to restrict the title and style of architect in Section 37 of the Architects Act as opposed to the very practice of the profession is significant. Relying on this distinction, the High Court ultimately held that: 13.... there can be no objection for a Rule providing for non-architects being promoted to a particular Class II post, which may involve planning, designing and supervision of Building constructions. What is prohibited and what is objectionable in law is calling the persons discharging such functions related to architecture, as 'Architects' when they are not registered as Architects.... Even Engineers, who do not have a degree in Archit ..... X X X X Extracts X X X X X X X X Extracts X X X X ..... . In dismissing the challenge to the grant of the consultancy service contract, Justice V.K. Jain observed that: 8. A plain reading of Section 37 of the Act which appears under the heading Prohibition against the use of title would show that though the aforesaid provision bars a person other than a registered architect or a firm of architects from using the title and style; it does not prohibit him from rendering architectural service so long as he does not use the expression architect and does not describe his firm, if any, as a firm of architects. Had the legislative intent been to prevent rendering of architectural services by any person other than a person registered under the provision of the Act, Section 37 of the Act would have been worded altogether differently. For instance, Section 29 of the Advocates Act, 1961 prohibits a person unless he is enrolled as an advocate from practicing in any Court or before any authority or persons. .... Section 15(2) of the Medical Council Act, 1956 also expressly prohibits a person other than a medical practitioner registered in any State, signing or authenticating a medical or fitness certificate, giving evidence as an expert and hol ..... X X X X Extracts X X X X X X X X Extracts X X X X ..... panies and Ministry of Corporate Affairs to prohibit the registration of any company or limited liability partnership which stated that it provided architectural services. The second writ petition sought a direction cancelling the permission granted to an architecture firm from Singapore to set up a wholly owned subsidiary in India. The third writ petition sought the quashing of a Ministry of Corporate Affairs' circular which stipulated that if a company or limited liability partnership had as one of its stated objectives the providing of architectural services, such an entity could not be incorporated without a no-objection certificate from the Council of Architecture. Justice Rekha Palli summarised the issues raised by the three writ petitions: 6. Thus, what emerges is that the first two writ petitions seek (i) a direction that only architects registered under the Act can provide architectural services; and (ii) no company/LLP can use the title and style of 'architect' or its derivatives. 7. The third writ petition essentially seeks directions to the contrary. The main thrust of the third writ petition is that the Act only restricts the use of the title and styl ..... X X X X Extracts X X X X X X X X Extracts X X X X ..... hat nobody other than individuals who are registered with the Council of Architects can use the title of Architect cannot mean that the Act restricts the practice of architecture as a whole to those registered with the Council. Controversy at the Supreme Court 19. During the course of the present proceedings, the Learned Attorney General has placed before us a compilation of relevant material including an order dated 14 February 2017 of a two-judge bench of this Court in Council of Architecture v. Manohar Krishnaji Ranade C.A. Nos. 3346-3348 of 2005 ( Manohar Ranade ). We have extracted the relevant portion of the order below: While we find no reason to interfere with the impugned judgment and order dated 29th November, 2004 passed by the Bombay High Court in Writ Petition No. 1830 of 1988 and connected matters, we are of the view that the High Court was in error in rejecting the contention of the Appellant that practice under the Architects Act, 1972 is not restricted only to the architects. It is not correct to say that anyone can practice as an architect even if he is not registered under the Architects Act, 1972. Placing reliance on this order, the Appellant c ..... X X X X Extracts X X X X X X X X Extracts X X X X ..... ed) The High Court of Bombay rejected the contention that the practice of architecture is restricted to registered architects under the Architects Act. The High Court of Bombay held that the practice of architecture is not restricted to architects registered under the Architects Act, and even qualified engineers are free to carry out the work ordinarily done by architects. 21. The order of this Court dated 14 February 2017 states that the High Court was in error in rejecting the contention of the Appellant that practice under the Architects Act, 1972 is not restricted only to the architects. The Appellant was the Council of Architecture. The order is based on the premise that the contention of the Council of Architecture before the High Court of Bombay was that the practice under the Architects Act, 1972 is not restricted only to architects. The order stated that the High Court was wrong in rejecting this contention. Therefore, the order of this Court dated 14 February 2017 clearly sought to lay down the proposition that the practice under the Architects Act, 1972 is not restricted only to architects. Having laid down this proposition, it would appear that the use of th ..... X X X X Extracts X X X X X X X X Extracts X X X X ..... provisions of this Act, any recognised qualification shall be a sufficient qualification for enrolment in the register. The import of Sections 14, 15 and 17 is that if an individual wishes to be a registered architect under the Architects Act, they must receive an educational qualification that is recognised as a valid qualification by virtue of its inclusion in the Schedule to the Architects Act or a notification Under Section 15. The Schedule to the Architects Act contains a list of qualifications that are recognised in law as sufficient to warrant the holder of the qualification being enrolled as a registered architect. Thus, by creating a system of statutorily recognised educational qualifications, the Architects Act regulates those individuals who are eligible to be registered architects under the Act. 23. Section 23 of the Architects Act provides that: 23. Preparation and maintenance of register-- (1) The Central Government shall, as soon as may be, cause to be prepared in the manner hereinafter provided a register of architects for India. (2) The Council shall upon its constitution assume the duty of maintaining the register in accordance with the provisions of t ..... X X X X Extracts X X X X X X X X Extracts X X X X ..... ve state aid. 24. Lastly, we may refer to the provision at the heart of the present controversy, Section 37 of the Architects Act which states: 37. Prohibition against use of title.--(1) After the expiry of one year from the date appointed Under Sub-section (2) of Section 24, no person other than a registered architect, or a firm of architects shall use the title and style of architect: Provided that the provisions of this Section shall not apply to-- (a) practice of the profession of an architect by a person designated as a landscape architect or naval architect ; (b) a person who, carrying on the profession of an architect in any country outside India, undertakes the function as a consultant or designer in India for a specific project with the prior permission of the Central Government. Explanation.--For the purposes of Clause (a),-- (i) landscape architect means a person who deals with the design of open spaces relating to plants, trees and landscape; (ii) naval architect means an architect who deals with design and construction of ships. (Emphasis supplied) Clause (2) of Section 37 states that any person who contravenes the prohibition creat ..... X X X X Extracts X X X X X X X X Extracts X X X X ..... o practise law.--Subject to the provisions of this Act and any Rules made thereunder, there shall, as from the appointed day, be only one class of persons entitled to practice the profession of law, namely, advocates (Emphasis supplied) In making a distinction between individuals registered under the statute and those not registered, the Advocates Act clearly stipulates that unregistered individuals cannot practice the profession of law. This stands in stark contrast to the text of the Architects Act which merely states that unregistered individuals cannot use the title and style of architect . Therefore, a plain reading of Section 37 clearly supports the proposition that the Architects Act prohibits individuals not registered with the Council of Architecture from using the title and style of Architect and does not prohibit unregistered individuals from practicing the activities undertaken by architects such as the design, supervision and construction of buildings. 27. It has been contended that one of the objects and purposes of the Architects Act is to prevent untrained individuals from designing, supervising and constructing buildings. It has further been contended ..... X X X X Extracts X X X X X X X X Extracts X X X X ..... ldings, factory buildings, residential houses, are being constructed each year. With this increase in the building activity, many unqualified persons calling themselves as Architects are undertaking the construction of buildings which are uneconomical and quite frequently are unsafe, thus bringing into disrepute the profession of architects. Various organisations, including the Indian Institute of Architects, have repeatedly emphasised the need for statutory Regulation to protect the general public from unqualified persons working as architects. With the passing of this legislation, it will be unlawful for any person to designate himself as 'architect' unless he has the requisite qualifications and experience and is registered under the Act. 3. The legislation protects the title architects but does not make the design, supervision and construction of buildings as an exclusive responsibility of architects. Other professions like engineers will be free to engage themselves in their normal vocation in respect of building construction work provided that they do not style themselves as architects. (Emphasis supplied) The Statement of Objects and Reasons of the Archite ..... X X X X Extracts X X X X X X X X Extracts X X X X ..... the Advocates Act, the legislature consciously chose to employ a less stringent measure in the case of architects, merely prohibiting unregistered individuals from using the title and style of architect. It is not for this Court to delve into why the legislature made this choice. However, during the course of these proceedings a cogent and pragmatic reason for this choice has been placed before this Court, by the learned Attorney General of India and by way of the erudite opinion of Chief Justice Raveendran in the decision in Mukesh Kumar Manhar to which we may briefly advert. 31. The profession of architecture involves a wide range of activities including inter alia: (i) Taking instructions from clients and preparing designs; (ii) Site evaluation and analysis; (iii) Site design and development; (iv) Structural design; (v) Design of sanitary, plumbing, sewage, drainage, and water supply structures; (vi) Design and structural integration of electrical and communications systems; (vii) Incorporation of heating, air-conditioning, ventilation and other mechanical systems including fire detection and prevention systems; and (viii) Periodic inspection and eva ..... X X X X Extracts X X X X X X X X Extracts X X X X ..... architect under the Architects Act. On this question, the High Court of Allahabad held that the mere nomenclature of a particular post will not violate the prohibition on the use of title and style of architect Under Section 37. In other words, even an individual not registered as an architect under the Architects Act can hold a post titled Architect or Associate Architect because the name of the post amounted to mere nomenclature . 35. While we have held that Section 37 does not prohibit the practice of architecture by unregistered individuals, it certainly does prohibit unregistered individuals from using the title and style of architect. Under the scheme of the Architects Act, only individuals possessing the statutorily recognised minimum educational qualifications can apply for registration as an Architect under the Act. Registration as an architect under the statute is thus a guarantee of possessing certain minimum educational qualifications. Section 37 prohibits unregistered individuals from designating themselves or referring to themselves as architects . The consequence of this regulatory regime is that when an individual is called an Architect a reasonab ..... X X X X Extracts X X X X X X X X Extracts X X X X ..... the use of title and style of architect contained in Section 37 of the Architects Act applies to both private individuals and government employees. The reasoning of the High Court on this issue commends itself for our acceptance. The text of Section 37 makes no distinction between government employees and private individuals. 38. The UP. Industrial Area Development Act provides NOIDA with the power to make Rules for the management of its internal affairs. In exercise of this power, NOIDA formulated the Service Regulations of 1981. Rule 16 of the Service Regulations sets out the 'Sources of Recruitment' for posts under NOIDAs authority. By Clause (iv) of Rule 16 NOIDA has the power to modify the sources of recruitment for posts under its supervision. It is in exercise of this power that NOIDA formulated the Promotion Policy of 2005 which sets out the sources and qualifications for recruitment in its various departments. It is well established that delegated legislation is susceptible to invalidity on the grounds of being ultra vires its parent legislation but also ultra vires other primary legislation. Where the provisions of a primary legislation (the Architects Act) ar ..... X X X X Extracts X X X X X X X X Extracts X X X X
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