2002 Supreme(MP) 59

2002 (2) JLJ 89
A.K. Mishra, J.
Mamta Pateria (Smt.) and others v. State of M.P. and others
W.P. No. 6926 of 2000; Decided on 11.1.2002.

Headnote:(1) Panchayats (Appeal and Revision) Rules 1995 (M.P.) -- Rr.5 (1) (a), 5(2)(i) and 5(2)(ii) -- M.P. Panchayat Raj Adhiniyam. 1993 -- S. 91 -- only one revision lies -- no second revision is maintainable.

       The points for decision in the instant writ petitions are:

       (1) Whether second revision is maintainable u/s 91 of the M.P. Panchayat Raj Adhiniyam, 1993 and under rule 5 of the M.P. Panchayat (Appeal and Revision) Rules, 1995?

       (2) Whether the State Minister has acted arbitrarily and in contravention of direction of this Court and the rules in law in not granting hearing to all the persons/parties in the revision?

       (3) Whether orders passed by the Collector and Commissioner holding selection to be illegal are proper and could not be interfered with by the State Minister in second revision? [Para 3

       Held: A bare reading of clause (a) of subd`rule (1) of rule 5 of the M.P. Panchayats (Appeal and Revision) Rules, 1995 makes it clear that only one revision lies either to the State/Government/Commissioner/ Directorate of Panchayat/Collector. The power given is concurrent. It does not enable filing of second revision against revisional order passed by the Commissioner or Collector or by the Director of Panchayat. Second revision does not lie.

       Respondents‘ main plank of submission is based on subd`rule (2) of rule 5. Clause (i) of subd`rule (2) of rule 5 provides, where proceedings in respect of any case have been commenced by the State Government under subd`rule (1), no action shall be taken by other officer mentioned in the said subd`rule in respect thereof. Clause (ii) of subd`rule (2) of rule 5 also lends support to interpretation that scheme provides only one revision and when once the superior authority is in seisin of the matter, subordinate authority or other officer cannot take any action. WP No. 1195/2001 and 2000(1) JLJ 280 relied on. 1972 JLJ 934 and 1986 JLJ 344 distinguished. [Paras 21, 22, 23 & 26

       (2) Panchayat Raj Adhiniyam, 1993 (M.P.) -- S. 94 -- provision under does not create any right of appeal or revision -- it provides power of control to the next higher authority. [Para 27

       (3) Panchayat Shikasha Karmi (Recruitment and Conditions of Service) Rules, 1997 (M.P.) -- R. 5 (9)(i)(c) --15% marks for oral test -- need not be divided separately for intelligence general knowledge, etc.

       It is not necessary to divide the marks separately for intelligence, general knowledge, etc. These are the factors which are to be kept in mind as guidelines. Therefore the submission of the petitioners that the members of the Interview Committee must separately assess and give marks on different listed topics faculty-wise as per the said rule, was not accepted by the Supreme Court. (1995) 3 SCC 486 followed. [Para 36

       (4) Constitution of India -- Art. 226 -- appointment of readers impugned -- though there is no absolute ban yet Court should hesitate to dislodge decision of academic bodies -- if provision of law has to be understood, Court can interfere.

       While there is no absolute ban, it is a rule of prudence that Courts should hesitate to dislodge decisions of academic bodies. If the Chancellor or any other authority lesser in level decides an academic matter or an educational question, the Court keeps its hands off, but where a provision of law has to be read and understood, it is not fair to keep the Court out. AIR 1980 SC 2141 followed. [Para 37

       (5) Panchayat Raj Adhiniyam, 1993 (M.P.) -- S. 47(1)(c), 47(4) and 47( 4-A) -- education committee and selection committee formed for interview -- marks should be equally divided between all the members.

       Normal rule is that marks should be equally divided between the members of the selection committee, which was not followed in the instant case. Chairman gave out of 11 marks on behalf of himself and 7 members, whereas other 4 members were given only one mark each. Chairman virtually usurped the entire functioning. [Para 38

       (6) Panchayat Raj Adhiniyam, 1993 (M.P.) -- S. 47 -- select committee -- person interested should withdraw from participation in interview -- procedure should be fair. AIR 1987 SC 454 followed. [Para 39

       (7) Panchayat Shikasha Karmi (Recruitment and Conditions of Service) Rules 1997 (M.P.) -- R. 5(9) (i)(c) -- interview -- record of performance should be kept. 1997 (1) SLR 310 followed. [Para 41

       (8) Civil Service -- entire selection arbitrary -- whole selection has to be set aside.

       If the entire selection is arbitrary it is that which is faulted and not the individual candidates. An axe has to be thrown upon favouritism; if the selections are vitiated from fraud, nepotism, favouritism and arbitrariness, should be set aside. The Court has to ensure the fairness of the procedure which in the instant case stands vitiated from the beginning and whole selection was simply a camouflage. (1994) 4 SCC 165 followed. [Para 42

       (9) Administrative Action - question of bias - decision rests on human probabilities and ordinary course of human conduct.

       It is difficult to prove the mind of a person. What has to be seen is whether there is reasonable ground for believing that he was likely to have been biased. In deciding the question of bias, human probabilities and ordinary course of human conduct have to be taken into consideration. In a group deliberation and decision like that of Selection Board, the members do not function as computers. Each member of the group or board is bound to influence the others, more so if the member concerned is a person with special knowledge. His bias is likely to operate in a subtle manner. AIR 1976 SC 2428 followed. [Para 42

       (10) Civil Service - 300 candidates interviewed in one day -procedure is a mere farce -- selection has to be quashed. 1995 Supp. (1) SCC 206 followed. [Para 46

       (11) Panchayat Raj Adhiniyam, 1993 (M.P.) -- Ss. 100 and 47-selection of Shikasha Karmis -- participation of relatives candidates and selection of such candidates -- is violation of rules - selection is also biased and should be set aside. AIR 1970 SC 150 and 1991 (7) SLR 491 followed. 1966 MPLJ 426 dissented from. 1973 (2) SLR 119 relied on. AIR 1981 SC 487 discussed. [Paras 48 & 53

       (12) Panchayat Members (Nomination of Representative) Rules, 1997 (M.P.) - Rr. 3, 4 and 5 -- Panchayat Raj Adhiniyam. 1993 (M.P.) - Ss. 47 (1)(c) and 47 (4-A) -- constitution of the committees -- cannot be challenged by candidates who duly participated in selection. AIR 1976 SC 2428 and AIR 1986 SC 1043 followed. [Para 58

       (13) Natural Justice -- mal-practices in selection process -- grave irregularities also committed -- every person need not be heard. 1999(1) Vidhi Bhasvar 295. L.P.A. No. 263/2001 and WP No. 4569/1998 relied on. AIR 1996 SC 2552 followed. 2000 (2) MPLJ 151. LPA No. 263/2001 and JT 2001 (5) SC 42 distinguished. [Paras 61 & 63

       ¼1½ iapk;r ¼vihy rFkk iqujh{k.k½ fu;e] 1995 ¼e-iz-½ && fu- 5¼1½¼d½] 5¼2½¼d½ rFkk 5¼2½¼nks½ && e-iz- iapk;r jkt vf/kfu;e] 1993 && /kkjk 91 && dsoy ,d iqujh{k.k gksxk && f}rh; iqujh{k.k pykus ;ksX; ugha gSA

       izLrqr fjV ;kfpdkvksa esa fofu‘p; ds fcanq gS %

       ¼1½ D;k e-iz- iapk;r jkt vf/kfu;e] 1993 dh /kkjk 91 ds v/khu rFkk e-iz- iapk;r ¼vihy rFkk iqujh{k.k½ fu;e] 1995 ds fu;e 5 ds v/khu f}rh; iqujh{k.k pykus ;ksX; gS \

       ¼2½ D;k iqujh{k.k esa leLr O;fDr;ksa@i{kdkjksa dks lquokbZ dk volj ugha ns dj jkT; ea=h us euekus <ax ls rFkk bl U;k;ky; ds funs‘k vkSj fof/k ds fu;ekssa ds mYya?ku esa dk;Z djrk gS \

       ¼3½ D;k p;u vkSj vfHkfu/kkZfjr djus ds dyDVj rFkk vk;qDr }kjk ikfjr vkns‘k mfpr gSa rFkk jkT; ea=h f}r; iqujh{k.k esa muesa gLr{ksi ugha fd tk ldrk Fkk \

       vfHkfu/kkZfjr % e-iz- iapk;r ¼vihy rFkk iqujh{k.k½ fu;e] 1995 ds fu;e 5 ds mifu;e ¼1½ ds [kaM ¼d½ ds iBu ek= ls Li"V gksrk gS fd jkT; ljdkj@vk;qDr@iapk;r funs‘kky;@dyDVj ds le{k dsoy ,d iqujh{k.k gksxkA nh xbZ ‘kfDr leorhZ gSA blls vk;qDr vFkok dyDVj vFkok iapk;r ds lapkyd }kjk ikfjr iqujh{k.k vkns‘k ds fo#) f}rh; iqujh{k.k Qkby djus dhs lkeF;Z izkr ugh gksxhA f}rh; iqujh{k.k ugha gksxkA

       izR;FkhZx.k ds fuosnu dk eq[; eksjpk fu;e 5 ds mifu;e ¼2½ ij vk/kkfjr gSA fu;e 5 ds mifu;e ¼2½ ds [kaM ¼,d½ eas micaf/kr gS fd tgk¡ fdlh ekeys ds ckjs esa dk;Zokgh jkT; ljdkj }kjk mifu;e ¼1½ ds v/khu vkjaHk dh xbZ gks ogk¡ bl ckjsa esa mDr mifu;e esa mfYyf[kr vU; vf/kdkjh }kjk dksbZ dkjZokbZ ugha dh tk,xhA fu;e 5 ds mifu;e ¼2½ ds [kaM ¼nks½ ls Hkh bl fuoZpu dks leFkZu izkIr gksrk gs fd ;kstuk esa dsoy ,d iqujh{k.k micaf/kr gS rFkk ,d ckj ekeyk ofj"B izkf/kdkjh ds gkFk esa pyk tk, rc v/khuLFk izkf/kdkjh vFkok vU; vf/kdkjh dksbZ dkjZokbZ ugha dj ldrkA fjV ;kfpdk Ø- 1195@2001 rFkk 2001¼1½ ts ,y ts 280 voyafcrA 1972 ts ,y ts 934 rFkk 1986 ts ,y ts 344 izHksfnrA

        ¿ iSjk 21] 22 23 ,oa 26À

       ¼2½ iapk;r jkt vf/kfu;e] 1993 ¼e-iz-½ && /kkjk 94 && bl mica/k esa vihy vFkok iqujh{k.k dks dksbZ vf/kdkj l`ftr ugha gksrk && blls Bhd mPprj izkf/kdkjh dks fu;a=.k dh ‘kfDr izkIr gksrh gSA ¿ iSjk 27À

       ¼3½ iapk;r f‘k{kk dehZ ¼HkrhZ rFkk lsok dh ‘krsZ½ fu;e] 1997 ¼e-iz-½ && fu- 5¼9½¼,d½] ¼x½ ekSf[kd ijh{kk ds fy, 15%vad && cqf)] lk/kkj.k Kku vkfn ds fy, i`Fkd~r% foHkkftr djuk vko‘;d ughaA

       cqf)] lkekU; Kku] vkfn ds fy, vad i`Fkd~r% foHkkftr djuk vko‘;d ugha gSA ;g og ckrsa gS ftUgsa ekxZn‘kZd fl)karksa ds :i esa /;ku esa j[kk tkuk gksrk gSA vr%] ;kphx.k dk ;g fuosnu mPpre U;k;ky; }kjk Lohdkj ugha fd;k tkuk Fkk fd lk{kkRdkj lfefr ds lnL;ksa dks mDr fu;ekuqlkj fofHké lwphc) fo"k;ksa dk ;ksX;rkuqlkj i`Fkd~ fu/kkZj.k dj vad nsuk gksaxsA ¼1995½ 3 ,l lh lh 486 vuqlfjrA ¿ iSjk 36À

       ¼4½ Hkkjr dk lafo/kku && vuq- 226 && mikpk;ksa dh fu;qfDr vkf{kIr && ;|fi iw.kZ ikcanh ugha gS] rFkkfi U;k;ky; dks ‘kS{kf.kd fudk;ksa dk fofu‘p; vekU; djus esa vfuPNqd gksuk pkfg, && fof/k dk mica/k le>k tkuk gks rc U;k;ky; }kjk gLr{ksi fd;k tk ldrk gSA

       ;|fi iw.kZ ikacnh ugha gS] rFkkfi ;g le>nkjh ds fu;e gS fd U;k;ky;ksa dks ‘kS{kf.kd fudk;ksa ds fofu‘p; vekU; djus esas vfuPNqd gksuk pkfg,A ;fn dqykf/kifr vFkok fuEurj Lrj dk vU; dksbZ izkf/kdkjh fdlh ‘kSf{kd fo"k; vFkok f‘k{kk laca/kh iz‘u dk fofu‘p;u djrk gS rc U;k;ky; gLr{ksi ugha djrk] ijarq tgk¡ fof/k ds mica/k dk ikB fd;k tk dj mls le>k tkuk gks ogk¡ U;k;ky; dks ckgj j[kuk U;k;ksfpr ugha gSA , vkb vkj 1980 ,l lh 2141 vuqlfjrA ¿ iSjk 37À

       ¼5½ iapk;r jkt vf/kfu;e] 1993 ¼e-iz-½ && /kkjk 47¼1½¼x½¼4½] 47¼4½ rFkk 47 ¼4&d½ && lk{kkRdkj ds fy, f‘k{kk lfefr rFkk p;u lfefr xfBr && vad leLr lnL;ksa ds chp leku :i ls foHkkftr gksuk pkfg,A

       izlkekU; fu;e ;g gS fd vad] p;u lfefr ds lnL;ksa ds chp leku :i ls foHkkftr gksuk pkfg,] ftldk bl ekeys esa vuqlj.k ugha gqvkA v/;{k us 15 vadksa esa ls 11 vius vkSj 7 lnL;ksa dh vksj j[ks] tcfd vU; 4 lnL;ksa dks dsoy ,d&,d vad fn;k x;kA v/;{k }kjk oLrqr% laiw.kZ izdk;Z gM+i fy;k x;kA ¿ iSjk 38À

       ¼6½ iapk;r jkt vf/kfu;e] 1993 ¼e-iz-½ && /kkjk 47 && p;u lfefr && fgrc) O;fDr dks lk{kkRdkj esa Hkkx ysus ls fojr jguk pkfg, && izfØ;k _tq gksuk pkfg,A , vkb vkj 1987 ,l lh 454 vuqlfjrA ¿ iSjk 39À

       ¼7½ iapk;r f‘k{kk dehZ ¼HkrhZ rFkk lsok dh ‘krsZ½ fu;e] 1997 ¼e-iz-½ && fu- 5¼9½¼,d½] ¼x½ && lk{kkRdkj && vH;fFkZ;ksa ds izn‘kZu dk vfHkys[k j[kk tkuk pkfg,A 1997 ¼1½ ,l ,y vkj 310 vuqlfjrA ¿ iSjk 41À

       ¼8½ flfoy lsok && laiw.kZ p;u dk euekuk && laiw.kZ p;u vikLr fd;k tkuk gksxkA

        ;fn laiw.kZ p;u euekuk gks rc p;u =qfViw.kZ gS] oS;fDrd vH;FkhZ ughaA i{kikr dj dqBkjk?kkr djuk gksxk] ;fn p;u diV] HkkbZ&Hkrhtkokn] i{kikr rFkk euekusiu ls nwf"kr gksa rc vikLr fd, tkuk pkfg,A U;k;ky; }kjk izfØ;k dh _tqrk lqfuf‘pr dh tkuk pkfg,] tks izLrqr ekeys esa vkjaHk ls nwf"kr gS rFkk laiw.kZ p;u dsoy Nn~hekoj.k FkkA ¼1994½ 4 ,l lh lh 165 vuqlfjrA ¿ iSjk 42À

       ¼9½ iz‘kklfud dkjZokbZ && i{kikr dk iz‘u && fofu‘p; ekuoh; v/fklaHkkO;rkvksa rFkk ekuoh; vkpj.k ds lkekU; vuqØe ij fuHkZj gSA

       O;fDr dh eu%fLFkfr lkfcr djuk dfBu gSA ns[kk ;g tkuk gksrk gS fd D;k ;g fo‘okl djus dss fy, ;qfDr;qDr vk/kkj gS fd mlds i{kikrh gksus dh laHkkouk FkhA i{kikr dk iz‘u fofuf‘pr djus esa ekuoh; vf/klaHkkO;rkvksa rFkk ekuoh; vkpj.k ds lkekU; vuqØe ij fopkj fd;k tkuk gksrk gSA lkewfgd fopkj&foe‘kZ rFkk p;u eaMy ds fofu‘p; tSls ekeyksa esa lnL; daI;wVjksa tSls dk;Z ugha djrsA lewg vFkok eaMy ds izR;sd lnL; }kjk vU; lnL;ksa dk izHkkfor gksuk ck/; gS] rc vkSj Hkh tc lac) lnL; fo‘ks"k Kku okyk O;fDr gksA mlds i{kikr dk vfrlw{e <ax ls izHkko iM+us dh laHkkouk gSA , vkb vkj 1976 ,l lh 2428 vuqlfjrA

        ¿ iSjk 42À

       ¼10½ flfoy lsok && 300 vH;fFkZ;ksa dk lk{kkRdkj ,d&gh fnu esa && izfØ;k ds vuqlj.k dks <ksax ek= gS && p;u vikLr fd;k tkuk gksxkA 1995 lIyh- 1 ,l lh lh 206 vuqlfjrA ¿ iSjk 46À

       ¼11½ iapk;r jkt vf/kfu;e] 1993 ¼e-iz-½ && /kkjk 100 rFkk 47 && f‘k{kk dfeZ;kas dk p;u && vH;fFkZ;ksa ds ukrsnkjksa }kjk Hkkx fy;k tkuk rFkk ,sls vH;fFkZ;ksa dk p;u && fu;eksa dk vfrØe.k gS && p;u Hkh i{kikriw.kZ gS rFkk vikLr fd;k tkuk pkfg,A , vkb vkj 1970 ,l lh 150 rFkk 1991 ¼7½ ,l ,y vkj 497 vuqlfjrA 1966 ,l ih ,y ts 426 folEerA 1973 ¼2½ ,l ,y vkj 119 voyafcrA , vkb vkj 1981 ,l lh 487 foosfprA

        ¿ iSjk 48 ,oa 53À

       ¼12½ iapk;r lnL; ¼izfrfuf/k dk ukefunsZ‘ku½ fu;e] 1997 ¼e-iz-½ && fu- 3] 4 rFkk 5 && e-iz- iapk;r jkt vf/kfu;e] 1993 && /kkjk 47¼1½¼x½ rFkk 47¼4&d½ && lfefr;ksa dk xBu && p;u esa lE;d~:is.k Hkkx ysus okys vH;fFkZ;ksa }kjk vkf{kIr ugha fd;k tk ldrkA , vkb vkj 1976 ,l lh 2428 rFkk , vkb vkj 1986 ,l lh 1043 vuqlfjrA

        ¿ iSjk 58À

       ¼13½ uSlfxZd U;k; && p;u izfØ;k esa vukpkj && xaHkhj vfu;ferrk,¡ Hkh && izR;sd O;fDr dks lquuk vko‘;d ughaA 1999 ¼1½ fof/k HkkLoj 295] ysVlZ isVsaV vihy Ø- 263@2001 rFkk fjV ;kfpdk Ø- 4569@1998 voyafcrA , vkb vkj 1996 ,l lh 2552 vuqlfjrA 2000 ¼2½ ,e ih ,y ts 151] ysVlZ isVsaV vihy Ø- 263@2001 rFkk ts Vh 2001¼5½ ,l lh 42 izHksfnrA ¿ iSjk 61 ,oa 63À