The Secretary, Sh. A.
P. D.Jain Pathshala & Ors. Vs. Shivaji Bhagwat More & Ors.
J U D G M E N T
R.V.RAVEENDRAN, J.
1.
Leave
granted in both the petitions.
2.
The
Government of Maharashtra by Government Resolution dated 27.4.2000 accorded sanction
for implementation of the Shikshan Sevak scheme in all recognized private
secondary/higher secondary schools/Junior colleges/B.Ed. colleges, in the state.
The said scheme in essence provided for
i.
appointment
of Shikshan Sevaks for a term of one year on payment of a fixed honorarium,
ii.
renewal
of such appointment annually, if the work was found to be satisfactory,
iii.
absorption
of such Shikshan Sevaks into service as teachers on completion of the specified
years of service.
It provided for
constitution of a three member Grievance Redressal Committee (consisting of the
concerned Divisional Deputy Director of Education, the Assistant Director and the
Education Officer) to consider and decide the grievances relating to selection,
appointment, re-appointment or mid-year cancellation of appointment. The scheme
provided as follows: "All the complaints received under the Shikshan Sevak
scheme are to be referred to the aforesaid
Three Member
Committee. This committee will hold monthly meetings and render its decision on
the complaints and would inform the same to the concerned. An opportunity to
put up the case would be given to the complainant." (Emphasis supplied]3. The
Bombay High Court disposed of several writ petitions challenging the said scheme,
by order dated 16.8.2000, recording the submission made on behalf of the state
government that it would amend the scheme by incorporating the several modifications
suggested by the court. While doing so, the High Court also directed the state government
to reconstitute the Grievance Redressal Committee with a retired District Judge
as Chairman and the Deputy Director and Education Officer (Secondary) of the concerned
region as members. The High Court further directed as follows :
3.
"All
complaints relating to unsatisfactory work or misconduct etc. will be forwarded
to the Committee who shall take decision within 30 days from the date of
receipt of record after giving an opportunity to the concerned parties to file their
replies so as to avoid prolonged procedure of oral hearing. All complaints in
respect of appointment, termination etc. shall be dealt with only by the
Committee constituted above and by no other authority. As the scheme is being implemented
on interim basis we direct that no Civil Court shall entertain any suit or
application in respect of disputes which are required to be dealt with by the
Committee." (emphasis supplied)
4.
In
compliance with the said decision dated 16.8.2000, the State Government by Government
Resolution dated 13.10.2000 modified the scheme. Clause (17) of the modified scheme
implemented the direction of the High Court regarding the re-constitution of the
Three Member Committee and provided that the Committee would function at Mumbai,
Aurangabad and Nagpur, the area of jurisdiction of the committees corresponding
to the jurisdiction of the benches of High Court at Mumbai, Aurangabad and
Nagpur.
5.
By
order dated 21.6.2001 in subsequent writ petitions, the High Court recorded the
following submissions of the State Government : "The learned Advocate General
stated that the State Government will appoint a nine member Grievance Committee
and the pending grievances of the Shikshan Sevaks will be referred to the said
Grievance Committee. The Committee will be headed by a retired Civil Judge, Sr.
Division, who will be appointed in consultation with the Registrar of this Court.
The learned Advocate General assured the Court that the appointment of the Committee
member will be notified within a period of six weeks from today.
He also stated that
the Member of the Grievance Committee will be given salary and emoluments as paid
to the member of the School Tribunal and necessary infrastructure will also be
provided. He stated that the Committee will hold the proceedings in Mumbai, Aurangabad
and Nagpur to consider the grievances of the Shikshan Sevaks of the respective
regions." Thereafter, Government Resolution dated 27.7.2001 was issued directing
that the grievances will be considered by a Single Member committee consisting of
retired Judge (higher level) at Mumbai, Aurangabad and Nagpur by way of circuit
bench and resolve the complaints of Shikshan Sevaks.Facts of this case
6.
The
appellants appointed the first respondent as a Shikshan Sevak on 29.7.2000 for
the period 1.8.2000 to 31.7.2003. The first respondent alleges that his
services were orally terminated on 11.6.2001. On the other hand, the appellants
allege that services of first respondent came to an end in March-April, 2001
(as his appointment was not approved due to lack of prescribed qualifications);
and the first respondent joined another school as an assistant teacher in July,
2001. The first respondent challenged his termination by filing an appeal before
the School Tribunal. Later he withdrew the said appeal on 18.10.2003 and filed
an appeal before the Grievance Committee in 5the year 2004.
The appellants raised
various preliminary objections about the maintainability of the complaint. As the
Grievance Committee did not consider them, the appellants filed W.P.
No.7597/2005 seeking a direction to the Grievance Committee to decide the
preliminary issues. The High Court admitted the said writ petition was
admitted, but did not stay the proceedings before the Grievance Committee. Therefore,
the Committee proceeded to hear the matter and allowed the appeal by order dated
28.7.2006. It quashed the termination dated 11.6.2001 and directed the
appellants to reinstate the first respondent forthwith in any of their high
schools without back wages but with continuity of service with a further direction
to the Education Officer to approve the appointment of the first respondent as a
regular teacher/assistant teacher. The appellants filed W.P.No.6196/2006
challenging the order dated 28.7.2006.
A learned Single
Judge admitted the said writ petition on 2.5.2008 but refused to stay the order
of the Grievance Committee. The said order dated 2.5.2008 refusing the interim relief
is challenged in the second of these two appeals.
7.
The
first respondent filed a writ petition (W.P.No.7362/2007) in September, 2007
seeking a direction to the appellants to implement the order dated 28.7.2006 passed
by the Grievance Committee. In the said writ 6petition, the High Court while issuing
notice on 31.3.2008, directed the Education officer to ensure the compliance by
the appellants, of the order dated 28.7.2006 passed by the Grievance Committee forthwith,
unless the said order was challenged and a stay obtained. The appellants filed an
application seeking vacation of the said interim order dated 31.3.2008 which
was dismissed by the High Court by order dated 5.8.2008, holding as follows :
i.
The
Grievance Committee had the power to decide the legality of the termination.
ii.
When
the Grievance Committee comes to a conclusion that the order of termination is bad
or illegal, the Shikshan Sevak whose services are terminated, would continue to
be on the rolls of the school.
iii.
As
the management receives grant-in-aid in regard to Shikshan Sevak, the appellants
were bound to comply with the direction issued by the Grievance Committee. The said
order is challenged in the first of these two appeals. This Court on 15.9.2008 while
issuing notice granted interim stay of the orders dated 31.3.2008 and 5.8.2008.
The Issue
8.
Under
the Shikshan Sevak Scheme, as originally formulated by the State Government by Government
Resolution dated 27.4.2000, the Grievance Redressal Committee was merely a
mechanism to hear grievances of Shikshan Sevaks and give its recommendation to the
Education Department, so that the department could take appropriate action. The
Grievance Committee was not intended to be a quasi-judicial forum as was
evident from the following: (a) The committee was constituted only to consider the
grievances of the Shikshan Sevaks by giving them an opportunity of putting forth
their grievances. (b) The scheme did not contemplate issue of notice to the employer,
nor hearing both parties, nor rendering any adjudicatory decision. (c) The
committee was a departmental committee with only the concerned officers as
members.
9.
The
High Court while recommending various modifications to the said scheme, in its
order dated 16.8.2000, issued specific directions making significant changes in
the constitution and functioning of the committee. Firstly it directed a change
in the constitution of the committee by requiring a retired District Judge to
head the Committee. Secondly, it directed that an opportunity should be given to
the `parties', that is, the complainant 8(Shikshan Sevak) and the person
against whom the complaint was made (the employer) to file their statements/replies,
before adjudicating upon the dispute.
Thirdly, it directed that
the committee should be the only adjudicatory authority and excluded the
jurisdiction of the Civil Courts (and any other authority) to entertain any suit
or application in regard to the disputes relating to selection, appointment,
re-appointment or cancellation of appointment of Shikshan Sevaks. The aforesaid
three changes by the High Court converted what was originally conceived by the
State Government to be an administrative grievance redressal mechanism, into a quasi
judicial adjudicatory Tribunal. This was reiterated by a subsequent order of
the High Court converting the committee into a one-man Tribunal consisting of a
retired Judge (of the rank of Civil Judge, Senior Division).
10.
The
appellants contend that the constitution of such a quasi judicial tribunal, by
a judicial fiat to the state government, was without the authority of law and
invalid, and consequently, the decisions by such a forum are void and
unenforceable. On the contentions raised, the following questions arise for our
consideration :
i.
Whether
the High Court can direct the State Government to create a quasi judicial forum;
and whether creation of such a forum by an executive order, by the State Government,
in pursuance of such a direction, is valid?
ii.
Whether
the High Court could, by a judicial order, exclude the jurisdiction of civil courts
to entertain any suits or applications in respect of disputes raised by
Shikshan Sevaks?
iii.
Whether
the High Court was justified in holding that when the Grievance Committee holds
that the order of termination is bad or illegal, it does not amount to ordering
reinstatement, but the Shikshan Sevak would as a result continue to be in the employment
of the employer?
iv.
Whether
the orders dated 2.5.2008 and 5.8.2008 of the High Court call for interference?
11.
In
the State of Maharashtra, the conditions of service of employees of private schools
are governed by the Maharashtra Employees of Private Schools (Conditions of
Service) Regulation Act, 1977 (`Act' for short). The said Act applies to
employees of primary schools, secondary schools, higher secondary schools,
junior colleges of education or any other institutions by whatever name called
including technical, vocational or art institutions. The term `employee' was initially
defined as any member of the teaching and non-teaching staff of a recognized school.
Section 8 provided for constitution of School Tribunals consisting of single member
who is an officer of the rank of Civil Judge (Senior Division). Section 9 gave
a right of appeal to the employees of private schools to the Tribunal.
The Tribunal was
given the power to give appropriate reliefs and directions to the management including
reinstatement, awarding of lesser punishment, restoration of rank, payment of
arrears of emoluments etc., and also the power to levy penalty. When the Shikshan
Sevak Scheme was introduced in the year 2000, it was assumed that the Shikshan
Sevaks were not "employees" of private schools and therefore will not
be entitled to approach the School Tribunals for relief.
Therefore, the scheme
provided a grievance redressal mechanism. When the validity of the scheme was
challenged, the High Court was also of the view that the Act would not apply to
Shikshan Sevaks as they were not `employees' as defined under the Act. The High
Court however was of the view that Shikshan Sevaks should have recourse to
remedies similar to the regular employees of private schools and therefore
directed reconstitution of the grievance committees on the lines of the School
Tribunal. The Act was amended by Amendment Act 14 of 2007 whereby the definition
of `employee' was expanded to include Shikshan Sevaks.
Ever since the
amendments to the Act, by Act 14 of 2007, came into force, Shikshan Sevaks have
the remedy of approaching the statutory School Tribunals constituted under the
Act for redressal of their grievances and the Grievance Committees became
redundant. Thus what falls for consideration in this case is the position that
existed prior to the 2007 Amendment to the Act. 11Re: Question (i)
12.
Chapter
VI of the Constitution of India deals with Sub-ordinate Courts. Article 233 of the
Constitution of India relates to appointment of District Judges. Article 234 relates
to recruitment of persons other than District Judges to the judicial service and
provides that appointment of persons to the judicial service of a State (other
than District Judges) shall be made by the Governor of the State in accordance
with the Rules made by him in that behalf after consultation with the State Public
Service Commission and with the High Court exercising jurisdiction in relation to
such State. Article 247 provides that notwithstanding anything contained in
Chapter I of Part XI of the Constitution, Parliament may by law provide for the
establishment of any additional courts for the better administration of laws
made by the Parliament or of any existing laws with respect to a matter
enumerated in the union list.
13.
Part
XIV-A of the Constitution of India deals with Tribunals. Article 323A provides for
the creation of Administrative Tribunals. Article 323B provides that the
appropriate Legislature may by law provide for the adjudication or trial by Tribunals
of any disputes, complaints or offences with respect to all or any of the matters
specified in clause (2) 12thereof with respect to which such Legislature has
power to make laws. The matters enumerated in clause (2) of Article 323B do not
include disputes relating to employees of educational institutions. This Court in
State of Karnataka vs. Vishwabharathi House Building Co-op., Society - 2003 (2)
SCC 412 has clarified that Articles 323A and 323B enabling the setting up of Tribunals,
are not to be interpreted as prohibiting the legislature from establishing Tribunals
not covered by the said Articles as long as there is legislative competence
under an appropriate entry in the Seventh Schedule.
14.
Courts
and Tribunals are constituted by the State, to invest judicial functions, as distinguished
from purely administrative or executive functions, (vide Durga Shankar Mehta v.
Thakur Raghuraj Singh - 1955 (1) SCR 267). `Courts' refer to hierarchy of courts
inverted with state's inherent judicial power established to administer justice
in pursuance of constitutional mandate. Tribunals are established under special
Statutes to decide the controversies arising under those special laws.
In Associated Cement Companies
Ltd. vs. P.N.Sharma [1965 (2) SCR 366] this Court observed : "...Judicial
functions and judicial powers are one of the essential attributes of a
sovereign State, and on considerations of policy, the State transfers its judicial
functions and powers mainly to the courts established by the Constitution; but that
does not affect the competence of the State, by appropriate measures, to transfer
a part of its judicial powers and functions to tribunals by entrusting to them
the task of adjudicating upon special matters and disputes between
parties." [emphasis supplied]In Kihoto Hollohan v. Zachillhu [1992 Supp(2)
SCC 651], this Court held:
"Where there is
a lis - an affirmation by one party and denial by another - and the dispute necessarily
involves a decision on the rights and obligations of the parties to it and the
authority is called upon to decide it, there is an exercise of judicial power.
That authority is called a Tribunal, if it does not have all the trappings of a
court."In Union of India v. Madras Bar Association [2010 (11) SCC 1], a
Constitution Bench of this Court held: "The term `Courts' refers to places
where justice is administered or refers to Judges who exercise judicial functions.
Courts are established by the state for administration of justice that is for
exercise of the judicial power of the state to maintain and uphold the rights, to
punish wrongs and to adjudicate upon disputes.
Tribunals on the other
hand are special alternative institutional mechanisms, usually brought into
existence by or under a statute to decide disputes arising with reference to
that particular statute, or to determine controversies arising out of any administrative
law. Courts refer to Civil Courts, Criminal Courts and High Courts. Tribunals
can be either private Tribunals (Arbitral Tribunals), or Tribunals constituted
under the Constitution (Speaker or the Chairman acting under Para 6(1) of the Tenth
Schedule) or Tribunals authorized by the Constitution (Administrative Tribunals
under Article 323A and Tribunals for other matters under Article 323B) or Statutory
Tribunals which are created under a statute (Motor Accident Claims Tribunal,
Debt Recovery Tribunals and consumer fora)." (emphasis supplied)
15.
Apart
from constitutional provisions, Tribunals with adjudicatory powers can be
created only by Statutes. Such Tribunals normally vested with the power to
summon witnesses, administer oath, and compel attendance of 14witnesses and
examine them on oath, production of evidence. Their powers are derived from the
statute that created them and they have to function within the limits imposed by
such statute.
It is possible to achieve
the independence associated with a judicial authority only if it is created in
terms of the Constitution or a law made by the Legislature. Creation,
continuance or existence of a judicial authority in a democracy must not depend
on the discretion of the executive but should be governed and regulated by
appropriate law enacted by a Legislature. In this context, it is worthwhile to refer
to the following observations of the European Commission of Human Rights in
Zand vs. Austria (Appeal No.7360 of 1976 decided on 12.10.1978): "The
judicial organization in a democratic society must not depend on the discretion
of the executive, but should be regulated by law emanating from the
Parliament".
16.
Article
162 of the Constitution, no doubt, provides that subject to the provisions of
the constitution, the executive power of a State shall extend to the matters upon
which the Legislature of the State has competence to legislate and are not confined
to matters over which legislation has been already passed.
It is also well
settled that so long as the State Government does not go against the provisions
of the Constitution or any law, the width and amplitude of its executive power under
Article 162 cannot be circumscribed; and if there is no enactment covering a
particular aspect, the Government could carry on the administration by issuing administrative
directions or instructions, until the legislature makes a law in that behalf.
(See Ram Jawaya Kapur Vs. State of Punjab - 1955 (2) SCR 225 and Bishamber
Dayal Chandra Mohan vs. State of U.P. - 1982 (1) SCC 39. But the powers of the State
to exercise executive powers on par with the legislative powers of the legislature,
is "subject to the provisions of the Constitution".
The provisions of the
Constitution, namely Articles 233, 234 and 247 for constituting sub-ordinate courts,
and Articles 323A and 323B for constituting tribunals by law made by the
legislature, make it clear that judicial Tribunals shall be created only by statutes
or rules framed under authority granted by the Constitution. If the power to constitute
and create judicial Tribunals by executive orders is recognized, there is every
likelihood of Tribunals being created without appropriate provisions in regard to
their constitution, functions, powers, appeals, revisions, and enforceability
of their orders, leading to chaos and confusion.
There is also very real
danger of citizen's rights being adversely affected by ad hoc authorities exercising
judicial functions, who are not independent or competent to adjudicate disputes
and render binding decisions. Therefore, 16the executive power of the State cannot
be extended to creating judicial Tribunals or authorities exercising judicial powers
and rendering judicial decisions.
17.
Neither
the Constitution nor any statute empowers a High Court to create or constitute
quasi judicial Tribunals for adjudicating disputes. It has no legislative powers.
Nor can it direct the executive branch of the State Government to create or
constitute quasi judicial Tribunals, otherwise than by legislative Statutes.
Therefore, it is not permissible for the High Court to direct the State
Government to constitute judicial authorities or Tribunals by executive orders,
nor permissible for the State by executive order or resolution create them for
adjudication of rights of parties. Re: Question (ii)
18.
Section
9 of the Code of Civil Procedure provides that the courts shall, subject to the
provisions of the Code, have jurisdiction to try all suits of a civil nature
excepting suits of which their cognizance is either expressly or impliedly barred.
The express or implied bar necessarily refers to a bar created by the Code itself
or by any statute made by a Legislature. Therefore, the High Court in exercise of
the power of judicial review, 17cannot issue a direction that the civil courts
shall not entertain any suit or application in regard to a particular type of
disputes (in this case, disputes relating to Shikshan Sevaks) nor create exclusive
jurisdiction in a quasi-judicial forum like the Grievance Committee will be entitled
to deal with them. The High Court, cannot, by a judicial order, nullify, supersede
or render ineffectual the express provisions of an enactment.
19.
Therefore,
we hold that constitution of a Grievance Committee as a public adjudicatory
forum, whose decisions are binding on the parties to the disputes, by an executive
order of the Government is impermissible. Secondly, the High Court cannot in
exercise of judicial power interfere with the jurisdiction of the civil courts vested
under Code of Civil Procedure.
Any such Grievance
Committee created by an executive order, either on the direction of the High
Court or otherwise, can only be fact finding bodies or recommending bodies which
can look into the grievances and make appropriate recommendations to the
government or its authorities, for taking necessary actions or appropriate reports
to enable judicial Tribunals to render decisions. The Grievance Committee
cannot be public quasi-judicial forum nor can its decisions be made final and
binding on parties, in disputes relating to Shikshan Sevaks. Therefore, it has to
be held that any order or opinion of the Grievance Committee on a complaint or
grievance submitted by a Shikshan Sevak were only recommendations to the State
Government (Education Department) for taking further action and nothing more.
Re: Questions (iii) & (iv)
20.
Even
assuming that the committees constituted under the Shikshan Sevaks scheme were
quasi judicial tribunals, they cannot direct reinstatement nor direct that the
employees are deemed to continue in service by declaring the termination to be bad.
It is well settled that courts would not direct reinstatement of service nor
grant a declaration that a contract of personnel service subsists and that the
employee even after removal is deemed to be in service. [See : S.B. Dutt vs.
University of Delhi - AIR 1958 SC 1050].
The three recognized
exceptions to the said rule are : (i) where a public servant having the
protection of Article 311 of the Constitution is dismissed from service is in
contravention of the provision; (ii) where a dismissed workman seeks reinstatement
before Industrial Tribunals/Labour Courts under the industrial law; and (iii)
where a statutory body acts in breach or violation of the mandatory obligation
imposed by Statute. [See : Executive Committee of Vaish Degree College, Shamli
vs. Lakshmi Narain - 1976 (2) SCR 1006]. The direction of the High Court in its
order dated 5.8.2008 that when the grievance committee holds that the
termination is bad, the Shikshan Sevak is deemed to continue on the rolls of
the management is therefore erroneous and liable to be set aside.
21.
If
a Grievance Committee opines that the termination or cancellation of appointment
of a Shikshan Sevak was bad, the State Government may consider such opinion/recommendation
and if it decides to accept it, take appropriate action by directing the school
to take back the Shikshan Sevak, and if the school fails to comply, take such
action as is permissible including stoppage of the grant. An opinion by the Grievance
Committee that the termination of the services of a Shikshan Sevak is illegal
can not however have the effect of either reinstating the employee into
service, nor deemed to a declaration that the Shikshan Sevak continues to an employee
of school. Even if a Shikshan Sevak is wrongly removed, the department could
only direct the school to take him back into service and if it does not comply,
take action permissible in law for disobedience of its directions.
22.
Therefore
the decision of the committee dated 28.7.2006 is not an enforceable or
executable order but only a recommendation that can be made the basis by the
Education Department to issue appropriate directions. It is needless to add that
persons aggrieved by such directions of the state government will be entitled to
challenge such directions either before the civil court or in writ proceedings.
23.
In
view of the above, the appeals are allowed and the orders dated 2.5.2008 and
5.8.2008, are set aside. The order of the Grievance Committee is treated as a recommendation
rendered for the benefit of the Education Department which can on the basis of the
said opinion take appropriate action in accordance with law. It is also open to
the Shikshan Sevak to seek appropriate remedy if he is aggrieved by his
termination, in accordance with law.
...........................J
[R. V. Raveedran]
...........................J
[A. K. Patnaik]
New
Delhi
July
4, 2011
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