Citation : 2016 Latest Caselaw 6636 Bom
Judgement Date : 23 November, 2016
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IN THE HIGH COURT OF JUDICATURE AT BOMBAY
BENCH AT AURANGABAD
WRIT PETITION NO. 3917 OF 2016
Bhavsar Dilip S/o Suklal,
Age : 56 Years, Occu. : Service,
R/o Plot No. 7, Anand Colony,
Near Court, Amalner,
Dist. Jalgaon. .. Petitioner
Versus
1. The State of Maharashtra,
Through it's Secretary,
Ministry of Higher and Technical
Education, Mantralaya,
Mumbai.
2. Director of Higher Education,
Pune.
3. North-Maharashtra University,
Jalgaon.
4. Pratap College, Amalner.
5. Khandesh Education Society,
Amalner.
6. L. A. Patil,
Age : 62 Years, Occu. : Service,
R/o Behind Hotel Samrat,
L.I.C. Colony, Dhule Road,
Amalner, Dist. Jalgaon. .. Respondents
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Shri S. B. Talekar, Advocate for the Petitioner.
Shri M. B. Bharaswadkar, A.G.P. for Respondent Nos. 1 and 2.
Shri Y. B. Bolkar, Advocate h/f Shri A. B. Girase, Advocate for
the Respondent No. 3.
Shri V. D. Hon, Senior Advocate i/by Shri A. V. Hon, Advocate for
Respondent Nos. 4 and 5.
Shri S. P. Brahme, Advocate for the Respondent No. 6.
CORAM : S. V. GANGAPURWALA
K. L. WADANE, JJ.
Close for Judgment on
Judgment pronounced on ig :
:
26.10.2016
23.11.2016
JUDGMENT (Per S. V. Gangapurwala, J.) :-
. Rule. Rule made returnable forthwith. With the consent of
learned counsel for respective parties taken up for final hearing.
2. The decision giving extension to the respondent No. 6 as a
principal of the respondent No. 4/college is assailed in the present petition.
3. The respondent No. 6 at the relevant time was working as a Principal of the respondent No. 4/college run by the respondent No. 5/society. The respondent No. 6 was to complete age of 62 years on 31.05.2015. The respondent No. 5 passed resolution on or about 22nd April, 2015 thereby resolving to extend the age of retirement of the respondent No. 6 to 65 years. The said
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resolution was forwarded to the respondent No. 3/university. The respondent No. 3/university on or about 15.05.2015 forwarded the
said proposal to the State Government suggesting that, the respondent No. 6 fulfills all the conditions and except non
publication of advertisement all other conditions are satisfied. On or about 04th June, 2015, the Director of Higher Education, Maharashtra State, Pune also forwarded the said proposal to the
State Government stating that barring the condition of
advertisement, all other conditions are complied. The State Government under its order dated 09th February, 2016 granted
approval to the proposal of extension for the post of principal to the respondent No. 6 till 31.05.2018. The same is subject matter in the present petition.
4. Mr. Talekar, the learned counsel for the petitioner submits that, the management of the respondent No. 5/society was bent upon giving extension to the respondent No. 6 as a principal as is
evident from the letter dated 18.09.2012. By the said letter, the respondent No. 6 was appointed as a principal and was directed to take charge of the post, which had not become vacant and
which was to become vacant after eight months that is on 31.05.2013. In the said order itself, it was stated that, the appointment of the respondent No. 6 is for a period of five years or till he completes the age of 65 years whichever is earlier from the date of joining. The respondent No. 5 had made its intention clear in the year 2012 itself to continue the respondent No. 6 till
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he attains age of 65 years. The learned counsel further submits that, the service record of the respondent No. 6 is not clean.
Even disciplinary enquiry was initiated against the respondent No. 6, however, one group of the management took side with the
respondent No. 6. A person who was demoted from the post of principal is continued as a principal till the age of 65 years by the respondent No. 5.
5.
The learned counsel further submits that, in the meeting of the managing committee of the respondent No. 5, the person who
had opposed extension of the respondent No. 6, now comes before the Court and files affidavit in favour of the respondent No. 6. The same is unethical and does not stand to reason. The learned
counsel submits that, the extension granted to the respondent
No. 6 to continue as a principal till he attains 65 years of age is arbitrary and not in consonance with the Government Resolution dated 05th March, 2011, more particularly clause 11(5) of the
said Government Resolution. The respondent No. 6 had challenged the said clause by filing independent writ petition alleging that the same is directory and not mandatory, however,
subsequently withdrew the writ petition. The learned counsel submits that, language of clause 11 of the Government Resolution dated 05.03.2011 is clear and unambiguous. Sub clauses (1) to (5) of clause 11 are mandatory. The learned counsel relies on the judgment of the Division Bench of this Court delivered at the Principal seat at Bombay in Writ
5 wp 3917.16
Petition No. 3481 of 2015 with other connected writ petitions
on 19th January, 2016. The Division Bench of this Court in
said writ petitions have categorically held that, Clause 11(5) of the said G. R. dated 05.03.2011 is mandatory.
6. The learned counsel further submits that, the grounds raised by respondents of extraordinary circumstances are also
erroneous. The respondents had issued publication inviting
applications for filling in the post of principal on 20.05.2015. Even six applications were received by the respondent No. 5. The
last date for inviting applications was 03.06.2015, however, the said process was not continued and before the last date for filling in applications, the respondent No. 5 passed a resolution
granting extension to the respondent No. 6 for the post of
principal. This shows that issuance of advertisement, inviting applications for filling in the post of principal of the respondent
No. 4 was just an empty formality.
7. Mr. Bharaswadkar, the learned Assistant Government Pleader appearing for respondent Nos. 1 and 2 submits that, the
Government has taken decision to enhance the age of superannuation of the principals of affiliated colleges from 62 to 65 years subject to recommendation of the Performance Review Committee and the sanction of Government. According to the learned A. G. P. because of the pendency of change report before the Assistant Charity Commissioner, the management of
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respondent No. 5 had not published the advertisement for the post of principal as required in the G. R. dated 05.03.2011. As
per Clause (2) of the G. R. dated 05.03.2011, the proposal of the respondent No. 6 was placed before the performance review
committee. The said committee assessed performance of the respondent No. 6 and the committee recommended the proposal of the respondent No. 6 to the Government for consideration and
sanction. On the basis of the said recommendation, the
Government of Maharashtra has granted extension to the petitioner by its order dated 09.02.2016 with effect from
01.06.2015 to 31.05.2018.
8. Mr. Hon, the learned senior advocate for respondent Nos. 4
and 5 submits that, clause 11(5) of the G. R. dated 05.03.2011 is
directory and not mandatory. The use of word shall is not always suggestive of the provision being mandatory. The word shall can also be read as may. The said clause 11(5) of the G. R. dated
05.03.2011 does not lay down consequences or penalty for non compliance of the said clause 11. If the provision does not prescribe consequences, then the said provision has to be read as
directory. The learned senior advocate relies on the judgment of the Apex Court in a case of Bachahan Devi and another Vs. Nagar Nigam, Gorakhpur and another reported in (2008) 12
SCC 372. The respondent No. 5/management made sincere
efforts to advertise the post of principal for two times. The respondent No. 6 would have crossed the age of 62 years on
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31.05.2015. The college was managed by the care taker body from 03.10.2013 to 17.04.2015. The Court orders were operating
thereby prohibiting the management from taking policy decisions. On 20th August, 2014, the Assistant Charity
Commissioner, Jalgaon had passed an order directing to hold elections and not to take any policy decision. After the elections were held, the election results were declared on 18.04.2015.
9.
The learned senior advocate further submits that, on 31.08.2014 care taker body passed a resolution to advertise the
post of principal. On 13.11.2014 no objection certificate was given by the Joint Director of Higher Education to advertise the post of principal. On 15.11.2014 care taker body submitted the draft of
advertisement for approval to the North Maharashtra University,
Jalgaon and also deposited Rs. 15,000/- by challan dated 11.12.2014 as a fee for publication of advertisement. The said draft was not approved. On 22.04.2015 newly elected body came
into existence and passed a resolution on 30th April, 2015 to advertise the post of principal and on the same day sent the draft of the advertisement to the university. As per the draft approved
by the university, the advertisement was issued inviting applications for the post of principal on 20th May, 2015. This was the second attempt of the management to advertise the post. Considering the academic and administrative experience of the respondent No. 6, the respondent No. 5 passed a resolution on 30th May, 2015 to continue the service of the respondent No. 6 as
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a principal. The performance review committee has also recommended the extension to the respondent No. 6 for the post
of principal till he attains age of 65 years. It is because of the extraordinary circumstances existing prior to one year of the
respondent No. 6 completing 62 years of age, the advertisement could not be issued twice.
10. According to the learned senior advocate, the respondent
No. 6 was satisfying all the 29 points mechanism as per Government Resolution dated 23.11.2011 and after considering
that the respondent No. 6 qualifies and complies with all the conditions required for grant of extension as a principal, the State Government has granted the approval to the extension.
The learned senior advocate further submits that, even the
respondent No. 6 has made a request for voluntary retirement by his letter dated 13.04.2016, however, the management has not accepted the request of the respondent No. 6. The respondent
No. 6 has contributed a lot in the field of nano science and has raised name of the respondent No. 5/institution at international level. His research articles are published in journals of high
repute. No illegality has been committed in grant of extension to the respondent No. 6 as a principal till he attends 65 years of age. The writ petition be dismissed.
11. Mr. Brahme, the learned counsel for the respondent No. 6 submits that, to grant the extension as a principal to respondent
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No. 6 is an administrative decision of the management and the State. This Court in exercise of its powers under Article 226 of
the Constitution of India would not sit in appeal over the decision of the administrative bodies. The said discretionary order cannot
be interfered in the exercise of powers of judicial review. The learned counsel relies on the judgment of the Apex Court in a case of State of Uttar Pradesh Vs. Johri Mal reported in
(2004) 4 SCC 714. According to the learned counsel, the
decision and actions which do not have adjudicative disposition may not strictly fall for consideration before a judicial review
Court.
12. The learned counsel further relies on the judgment of the
Division Bench of this Court in a case of Satish Kundanlal
Agarwal Vs. The State of Maharashtra and others
reported in 2011(6) All M. R. 689 to contend that, the Government of Maharashtra while framing the scheme for
implementation of the directives of the Government of India has set out conditions in Clause 11 of the G. R. dated 05.03.2011 and unless such policy decision suffers from arbitrariness, this Court
under a power of judicial review may not cause interference in such decisions. The learned counsel further submits that, the Courts would not normally interfere with the decision of academic bodies. To substantiate said submissions, the learned counsel relies on the judgment of the Apex Court in a case of J. P. Kulshrestha Vs. Chancellor, Allahabad University
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reported in (1980) 3 SCC 418. The learned counsel further submits that, while taking administrative decisions, if the
relevant considerations have been taken note of and no relevant aspect has been ignored, the same cannot be attacked on merits.
The learned counsel relies on the judgment of the Apex Court in a case of Surinder Shukla Vs. Union of India and others reported in (2008) 2 SCC 649.
13.
The learned counsel submits that, performance review committee has found that the respondent No. 6 complies with
each and every requirement as laid down under the said Government Resolution and has found the respondent No. 6 to be suitable for grant of extension and this Court could not sit in
appeal over the said decision. In relation to academic matters,
the Court shall be extremely reluctant to substitute its own views. The learned counsel relies on the judgment of the Apex Court in a case of All India Council for Technical
Education Vs. Surinder Kumar Dhawan and others reported
in (2009) 11 SCC 726. The learned counsel further submits that, the respondent No. 6 being qualified has been granted
extension. The respondent Nos. 4 and 5 have detailed the extraordinary circumstances prevailing because of which twice the advertisement could not be given inviting applications for the post of principal of the respondent No. 4/college. Considering the said exceptional circumstance, the decision has been rightly taken by the performance review committee and the Government
11 wp 3917.16
and the same needs no interference at the hands of this Court.
14. Mr. Bolkar, the learned counsel for the respondent No. 3/university submits that, as per the Government Resolution
dated 05.03.2011 the procedure for extension and publishing an advertisement should be completed before one year of the date of superannuation of the person holding the post. The date of
superannuation of the respondent No. 6 was 31.05.2015, as such
the college was required to take steps from 30th April, 2014. On 15.11.2014, the respondent/college has submitted the proposal
seeking permission to publish an advertisement on 15.11.2014. In one of the writ petition, this Court on 14.11.2014 directed the management not to take policy decision. On 16.01.2015
considering the dispute in the management the university
requested the trust to inform the status of the continuing management. The respondent/college on 30th April, 2015 again submitted the request to accord sanction to the advertisement for
filling up the post of principal giving reference of the letter dated 15.11.2014. The university accorded sanction to the same vide letter dated 14.05.2015 and on 20.05.2015 the advertisement was
published. The respondent No. 4/college under letter dated 05.01.2016 that is after lapse of seven months of advertisement prayed for appointment of selection committee. In the proposal submitted to the Government, the university had categorically stated that, the college has not complied with the condition of the Government Resolution dated 05.03.2011 in respect of
12 wp 3917.16
publication of advertisement for two times.
15. We have considered the submissions canvassed by learned counsel for respective parties and also perused documents filed
on record.
16. We would not enter into the discussion about credentials of
the respondent No. 6, as the performance review committee has
found the respondent No. 6 satisfying all the parameters as required under Government Resolution dated 05.03.2011 and
possessing the academic and administrative excellence. We would not tread upon the same. We are not sitting in appeal over the decision of the performance review committee accepting that
respondent No. 6 possesses the required qualification and fulfills
the requirements of educational and administrative aspect. We would not substitute our views over the views of performance review committee as observed by the Apex Court in a case of All
India Council for Technical Education Vs. Surinder
Kumar Dhawan and others referred to supra.
17. In the instant matter we are concerned with Clause 11 and more particularly Clause 11(5) of the Government Resolution dated 05.03.2011. The said Clause 11 of the G. R. dated 05.03.2011 in vernacular language reads thus ;
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18. The proposition put forth by the learned counsel for respondents No. 4 to 6 that the scope of judicial review in
administrative actions is in narrow compass need not be debated. The same is settled proposition of law. This Court while exercising its powers of judicial review would not sit as a
supervisory body, nor it would sit in appeal over the
administrative decisions and more particularly in academic matters as is held by the Apex Court in the cases referred to
supra. Nor an order passed by an administrative authority exercising discretion vested in it can be interfered with, in judicial review unless it is shown that exercise of discretion itself
is perverse or illegal. However, it is also well settled that, this
Court while exercising its powers of judicial review may be required to examine due adherence to the decision making
process as envisaged in the relevant rules or the Government Resolutions. The judicial review is fundamental mechanism for examining whether public authorities are within their domain
and thus keeping them within due bounds for upholding the rule of law.
19. Clause 11(5) of the Government Resolution dated 05.03.2011 is couched in mandatory form. Clause 11 itself states that, if an extension to the principal is to be granted, then the
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conditions enumerated from Sub Clause (1) to (5) of Clause 11 of said G. R. dated 05.03.2011 are imperative and mandatory. Sub
Clause (5) of Clause 11 of the G. R. mandates that, before extension is granted to the existing principal to perform his
duties after the age of 62 years, then the institution is required to advertise the post of principal to fill in the same by inviting applications atleast twice. Attempts are required to be made to
fill in the post of principal atleast twice before considering grant
of extension to the existing principal. Sub Clause (5) of Clause 11 of the said G. R. further lays down that, after the existing
principal attains 61 years of age, it will be imperative and mandatory for the institution to follow requirements and satisfy conditions as contained in the Sub Clauses (1) to (5) of Clause 11
of the G. R. dated 05.03.2011.
20. The Government had formulated the policy of granting extension to the existing principals till they attain age of 65
years under G. R. dated 05.03.2011, as quite a large number of posts of principals were remaining vacant. In order to mitigate the situation, the policy was formulated increasing the age of
retirement of the existing principals. However, while doing so the institutions are required to comply with conditions stipulated in said Government Resolution.
21. In present case, respondent No. 5/institution has not followed requirement under Sub Clause (5) of Clause 11 of the G.
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R. dated 05.03.2011. It has failed to advertise the post twice before granting extension to respondent No. 6. The reason put
forth by respondents is of existence of extraordinary circumstances that is dispute interse between the two groups in
the management. Reference is made to the orders passed by the Court prohibiting the management to take a policy decision. The said plea does not inspire confidence. This Court in Writ Petition
No. 8086 of 2014 with other connected writ petitions under order
dated 14th November, 2014 had refrained the management from taking policy decision. However, in para 11 of the said order, it
had further observed that, if any major policy decision becomes necessary, the trust can move appropriate application before the Assistant Charity Commissioner at Dhule and the authority
shall decide it independently on its own merits. As such, the
respondents were not prohibited from taking steps pursuant to the said order also.
22. The respondent No. 5 had applied to the university seeking permission to advertise the post as per its resolution dated 30th April, 2015. The university had also granted its approval to the
advertisement on 14.05.2015 and on 20th May 2015 the advertisement was published. As stated by the petitioner six applications were received by the respondent Nos. 4 and 5 for the post of principal of the respondent No. 4/college. The petitioner had also applied for the said post. However, without proceeding further with the recruitment process, on 22nd April, 2015
17 wp 3917.16
resolution came to be passed for grant of extension to respondent No. 6 as a principal till he attains 65 years of age. Said
resolution was certainly not in consonance with the G. R. dated 05.03.2011. No reasonable explanation is forth coming for not
proceeding further with the recruitment process, though advertisement was issued and applications are also received, except that respondent No. 6 was to complete 62 years of age on
31.05.2015. This reflects that, issuance of advertisement was
mere farcical and an eye wash. Respondents No. 4 and 5 were predetermined to grant extension to respondent No. 6. It is not a
case that, even after efforts were made for filling in the post of principal by recruitment, the respondents No. 4 and 5 did not get eligible candidate. On the contrary the whole conduct of
respondents No. 4 and 5 demonstrates their anxiety to continue
the respondent No. 6 as the principal and to avoid selecting principal by competitive recruitment process.
23. The Joint Director of Education and the University had forwarded proposal to the Government with a remark that, the respondent No. 6 qualifies for the post of principal. However, in
the process Sub Clause (5) of Clause 11 of the G. R. dated 05.03.2011 is not complied with. The Government while passing the impugned order has not taken into consideration said flaw viz non compliance of Sub clause (5) of Clause 11 of G. R. dated 05.03.2011.
18 wp 3917.16
24. The respondents have contended that, the Sub Clause (5) of Clause 11 of the said G. R. dated 05.03.2011 is directory and not
mandatory. It is not possible to comprehend the said argument. The policy conferring powers to be exercised to grant extension to
the existing principal till he attains 65 years is on compliance with certain conditions. The conditions prescribed are normally to be held to be mandatory and the powers exercised inconsistent
with those conditions will have to be negatived. If, a statute or a
policy directs a thing to be done in a certain way, that thing shall not, be done in any other way. Moreover, the language employed
in Sub Clause (5) of Clause 11 of the G. R. dated 05.03.2011 also states that, it is imperative and mandatory to observe the procedure as contemplated. Considering the intent of the G. R.
dated 05.03.2011 and the circumstances existing for formulating
the policy as laid down in said G. R., there cannot be any other view than to hold that, said provision is mandatory.
25. While construing a statutory provision or the clause, the Courts have to consider the subject matter, the purpose of the provision, the object intended to be secured by the statute, it's
prime importance, as also the actual word employed. In the present case, the clause itself employs words in mandatory form and adherence to the same imperative.
26. The purpose of formulating policy granting extension to the age of retirement to 65 years was that the large number of vacant
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posts could not be filled in on account of non availability of the qualified and experienced professors and principals and inspite
of attempts being made, the posts could not be filled in. The State had made it imperative and compulsory, mandating the
institution to make attempts to fill in the post by direct recruitment. For said purpose condition is laid down to issue advertisement inviting applications for the post of principal and
in case qualified candidate is not available inspite of issuing
advertisement, then attempt is to be made for second time inviting applications by issuing advertisement and if on both
occasions qualified and experienced candidates are not available, then has to consider grant of extension to the existing principal.
27. Sub clause (5) of Clause 11 of the G. R. dated 05.03.2011
imposes a duty upon the institution. It does not authorize the institution to consider grant of extension to the existing principal unless and until at least twice the attempt is made to fill in the
post by direct recruitment and the said process has to commence immediately on existing principal completing 61 years of age, that is one year prior to the date of his retirement at the age of
62 years. This Court at its principal seat at Bombay in Writ Petition No. 3481 of 2015 with other connected writ petitions under its judgment dated 19.01.2016 has held Clause 11(5) of the G. R. dated 05.03.2011 to be mandatory. Even the arguments of the respondents of existence of extraordinary circumstances for not giving advertisement does not inspire confidence. In fact,
20 wp 3917.16
advertisement was also given, applications were invited, applications were received, however, the said process was not
continued and before the last date of receiving applications, resolution was passed to grant extension to the respondent No. 6
as principal till he attains 65 years of age. Such act of passing resolution, so also non adherence to Sub Clause (5) of Clause 11 of the G. R. dated 05.03.2011 is arbitrary.
28.
The reasons given by respondents No. 4 and 5 that, the respondent No. 6 was completing age of 62 years on 31.05.2015,
as such prior to the said date decision was required to be taken to grant extension to him as principal till he attains age of 65 years is not proper. The respondent No. 6 also could have competed in
the said selection process.
29. As observed above, we would be more concerned with the adherence to the decision making process and not with the merit
of the decision. From the factual matrix as discussed above, it is abundantly clear that, the respondents have failed to scrupulously follow the procedure as laid down for granting
extension to the respondent No. 6 as principal. In fact, the respondents have followed the procedure more in breach thereof.
30. The act of respondent Nos. 4 and 5 in discontinuing the selection process in the midst and granting extension to respondent No. 6 smacks of arbitrariness. Arbitrariness has no
21 wp 3917.16
role in the society governed by rule of law. Arbitrariness is antithesis to the rule of law, fair play, justice, equity and good
conscience. On the touch stone of this principle, the impugned order cannot be sustained. The same is hereby quashed and set
aside.
31. The respondents No. 4 and 5 shall complete the process of
filling in the post of principal pursuant to the advertisement
dated 20th May, 2015 and/or may issue fresh advertisement within a period of one month from the date of this order for the
purpose of filling the post of principal of the respondent No. 4/college. The respondent No. 6 has worked as principal, as such, the respondent No. 6 would be entitled to salary for the period
the respondent No. 6 was the principal. The relief claimed in
prayer clause 'D' as such is negatived.
Rule accordingly is made absolute in above terms. No
costs.
Sd/- Sd/-
[ K. L. WADANE, J. ] [ S. V. GANGAPURWALA, J. ]
32. At this state, Mr. Brahme, learned counsel for the respondent No. 6, seeks stay of this order for a period of four weeks. The learned counsel for the petitioner opposes the said request.
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33. Considering the fact that the respondent No. 6 was working
as a principal and to give opportunity to the respondent No. 6 to avail further remedy, the present order is stayed for a period of four (04) weeks from today. Needless to state on lapse of four (04)
weeks, the present protection shall come to an end.
Sd/- Sd/-
[ K. L. WADANE, J. ]
ig [ S. V. GANGAPURWALA, J. ]
bsb/Nov. 16
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