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1994 JLJ 73
S.K. Dubey and S.K. Chawla, JJ.
Suresh Kumar Dwivedi and others v. State of M.P. and others
M.P. No. 1456 of 1991; Decided on 22.3.1993.
‘Education‘ in its proper perspective stands on a higher pedestal than any other necessity of life. Education is necessary for the people of the nation, which must be free and fair as far as practicable. [Para 6
(2) Constitution of India -- Arts. 39, 41 and 45 -- it is obligatory for State to provide education to its citizens -- a person cannot be supposed to live with dignity without education.
The right to education may not be in the shape of a fundamental right under Part III of the Constitution, but, reading Articles 39, 41 and 45, it is clear, the framers of the Constitution made it obligatory for the State to provide education for its citizens. It is only education which equips a citizen to participate in achieving the objectives enshrined‘ in the Preamble of the Constitution which assures the dignity of the individual. The dignity of a man is inviolable, as enshrined in Article 21, which cannot be assured unless his personality is developed, and the only way to do that is to educate him. Thus, the Directive Principles which are fundamental in the governance of the country, cannot be isolated from the fundamental rights guaranteed under Part III of the Constitution.[Para 6
(3) Education -- teacher plays a pivotal role in moulding the career, character and moral fibres -- he is principal instrument to awakening child to the cultural ethos, intellectual excellence and discipline. AIR 1992 SCW 2182 followed. [Para 7
(4) Education -- excellence of instructions - depends upon excellence of teaching staff -- teaching staff should be well equipped -- there should be decent living standards to teacher -- exploitation of the teaching staff or treating them as ordinary labourers has to be eradicated. AIR 1987 SC 311 followed [Para 8
(5) Ashashkiya Shikshan Sanstba (Adbyapakon Tatba Anya Karamchariyon Ke Vetano Ka Sandaya) Adhiniyam, 1978 (M.P.) -- Ss. 3 and 5 -provisions under --,provide payment of salary to recognised teachers and other staff without any unlawful deduction -- ‘institutional fund‘ as constituted under S.5 is for the purpose of disbursement of salary in the manner provided therein. 1979 JLJ 485 relied on. [Paras 10 & 11
(6) Ashaskiya Shikshan Sanstha (Institutional Fund) Rules, 1983 (M.P.) -- Rr. 2, 3, 5, 6 to 10 -- cumulative effect of -- ordinarily a teacher cannot be denied payment of his salary on appointed date of salary month.
From the aforesaid provisions of the Rules, it is abundantly clear that ordinarily a teacher cannot be denied payment of his salary on the appointed date of the salary payment month. Every institution and Education Officer has to obey the positive mandate of Rule 9 and prepare pay bills of recognised teachers. If there is any default on the part of the " Principal/Headmaster, it is open to the Management to take appropriate action against him, but the Management‘s default cannot stall disbursement of salary to teachers, as it results in extraction of forced labour which is prohibited by Article 23 of the Constitution. Therfore, the stand of the State that, because of the lapses on the part of the institution, Principal/Headmaster, the delay is caused, is not correct, as, to meet such a situation, the Education Officer or his nominee can operate the account singly as may be specified in the order, as is evident from subd`rule (3) of R. 5. Hence, the payment of monthly salary to the teachers after the lapse of six, seven or eight months or so on the pretext of completing the formalities and scrutinising the pay bills, etc., is not only illegal but shows lack of performance of statutory duty imposed under the Act and the Rules. M.P. No. 325 of 1991 relied on. [Para 13
(7) Constitution of India -- Arts. 14, 16 (1) and 39 (d) -- teachers of aided institutions and of Government institution -- performing the same act -- if aided institutional teachers are not paid equal salary and DA., it is violative of the principle of‘ ‘equal pay for equal work". 1991 SC 1173, AIR 1982 SC 879 and AIR 1986 SC 584 followed. [Paras 14 & 15
(8) Court -- no legal provision of pension, gratuity, medical allowance and C.C.A. for teachers of aided institutions -- Court cannot direct implementation of these provisions -- it is policy matter involving heavy financial burden -- Court does not substitute its judgment for that of the legislature or its agents as to matters within the province of either. (1991) 3 SCC 11 followed. AIR 1983 SC 130, 1990 (Supp.) SCC 306 and AIR 1988 SC 1663 distinguished. [Paras 15 & 16
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^f‘k{kk* dk LFkku mlds leqfpr ifjçs{; esa thou dh vU; fdlh Hkh vko‘;drk ls mPprj ihfBdk ij gSA f‘k{kk jk"Vª dh turk ds fy, vko‘;d gS] tks fd ;Fkklk/; fu%‘kqYd rFkk fu"i{k gksuk pkfg,A ¿iSjk 6
¼2½ Hkkjr dk lafo/kku & vuq-39] 41 rFkk 45 & jkT; ij mlds ukxfjdksa dks f‘k{kk dh O;oLFkk djuk ck/;dj gS & f‘k{kk ds fcuk fdlh O;fDr dk xfjek ds lkFk jgus dk vuqeku ugha yxk;k tk ldrkA
f‘k{kk dk vf/kdkj lafo/kku ds Hkkx 3 ds v/khu fdlh ewy vf/kdkj ds :i esa Hkys gh u gksa] fdarq] vuqPNsn 39] 41 rFkk 45 dks i<+us ls] ;g Li"V gS fd lafo/kku ds fojpf;rkvksa }kjk jkT; ds ukxfjdksa ds fy, f‘k{kk dh O;oLFkk fd;k tkuk jkT; ds fy, ck/;dj cuk;k x;k gSA og dsoy f‘k{kk gS tks fdlh ukxfjd dks] lafo/kku dh mn~nsf‘kdk esa] ftlds }kjk fdlh O;fDr dh xfjek dk vk‘oklu fn;k x;k gS] çfr"Bkfir mn~ns‘;ksa dh çkfIr esa Hkkx ysus ds fy, lqlfTtr djrh gSA fdlh O;fDr dh xfjek vufrØe.kh; gS] tSlk fd vuqPNsn 21 esa çfr"Bkfir gS] ftldk vk‘oklu rc rd ugha fn;k tk ldrk tc rd fd mldk O;fDrRo fodflr u gks] rFkk ,slk djus dk ,dek= ekxZ mls f‘kf{kr djuk gSA vrr% funs‘kd rRo tks fd ns‘k ds ‘kklu ds fy, ewy gSa] lafo/kku ds Hkkx 3 ds v/khu çR;kHkwr ewy vf/kdkjksa ls vyx ugha fd, tk ldrsA ¿iSjk 6
¼3½ f‘k{kk & o`fÙk] pfj= rFkk uSfrd LoHkko x<+us esa v/;kid dh ewyHkwr Hkwfedk gksrh gS && ckyd dks lkaLÑfrd yksdkpkj] ckSf)d mRd"kZ rFkk vuq‘kklu dk mncks/ku djkus esa og çeq[k lk/ku gSA , vkb vkj 1992 ,l lh MCy;w 2182 vuqlfjrA ¿iSjk 7
¼4½ f‘k{kk & f‘k{k.k dh Js"Brk & v/;kiu deZpkjho`an dh Js"Brk ij fuHkZj gksrh gS && v/;kiu deZpkfjo`an lqlfTtr gksuk pkfg, & v/;kid dk larks"ktud thouLrj gksuk pkfg, & v/;kiu deZpkfjo`an ds ‘kks"k.k vFkok muds lkFk ekewyh Jfedksa tSls crkZo dk mUewyu fd;k tkuk gksxkA , vkb vkj 1987 ,l lh 311 vuqlfjrA ¿iSjk 8
¼5½ v‘kkldh; f‘k{k.k laLFkk ¼v/;kidksa rFkk vU; deZpkfj;ksa ds osruksa dk lank;½ vf/kfu;e] 1978 ¼e-ç-½ & /kkjk 3 rFkk 5 & mica/k & ekU;rkçkIr v/;kidksa rFkk vU; deZpkfjo`an dks fdlh Hkh fof/k fo#) dVkSrh ds fcuk osru dk lank; micaf/kr djrs gSa & /kkjk 5 ds v/khu ;Fkk xfBr ^^laLFkxr fuf/k* mlesa micaf/kr jhfr ls osru ds laforj.k ds ç;kstu ds fy, gSA 1979 ts ,y ts 485 voyafcrA ¿iSjk 10 ,oa 11
¼6½ v‘kkldh; f‘k{k.k laLFkk ¼laLFkkxr fuf/k½ fu;e] 1983 ¼e-ç-½ & fu-2] 3] 5] 6 ls 10 & dk lapk;h çHkko & lkekU;r% fdlh v/;kid dks osru ekl dh fu;r rkjh[k dks mlds osru ds lank; ls oafpr ugha j[kk tk ldrkA
mi;qZDr fu;eksa ds mica/kksa ls] ;g çpqj :Ik ls Li"V gS fd lkekU;r% fdlh v/;kid dks osru lank; ekl dh fu;r rkjh[k dks mlds osru ds lank; ls oafpr ugha j[kk tk ldrkA çR;sd laLFkk rFkk f‘k{kk vf/kdkjh dks fu;e 9 dh Li"V vkKk dk ikyu djuk gksrk gS rFkk ekU;rkçkIr v/;kidksa ds osru fcy cukuk gksrs gSaA ;fn çkpk;Z@ç/kku v/;kid dh vksj ls dksbZ O;fDrØe ls v/;kidksa ds osru ds laforj.k esa ck/kk ugha Mkyh tk ldrh] D;ksafd og cykRJe djkus esa ifj.kkfer gksrk gS tks fd lafo/kku ds vuqPNsn 23 }kjk çfrf"k) gSA vr%] jkT; dk vk/kkj fd laLFkk çkpk;Z@ç/kku v/;kid dh xyfr;ksa ds dkj.k foyac gqvk gS] Bhd ugha gSa] D;ksafd ,slh fLFkfr dk lkeuk djus ds fy,] f‘k{kk vf/kdkjh vFkok mldk ukefunsZf‘krh ,dy :Ik ls [kkrk pyk ldrk gS tSlk vkns‘k esa fofufnZ"V gks] tSlk fd fu-5 ds mifu;e ¼3½ }kjk lqO;Dr gSA vr%] vkSipkfjdrk,¡ iwjh djus rFkk osru fcy] vkfn fd Nkuchu ds cgkus ls v/;kidksa dks ekfld osru dk lank; Ng] lkr vFkok vkB ekl i‘pkr fd;k tkuk u dsoy voS/k gS vfirq vf/kfu;e rFkk fu;eksa ds v/khu vf/kjksfir dkuwuh drZO; ds ikyu dk vHkko n‘kkZrk gSA çdh.kZ ;kfpdk Ø-325 lu~ 1991 voyafcrA ¿iSjk 13
¼7½ Hkkjr dk lafo/kku & vuq- 14] 16 ¼1½ rFkk 39 ¼?k½ & lgk;rk&çkIr laLFkk rFkk ljdkjh laLFkk ds v/;kid & ,d gh dk;Z djrs gSa & ;fn lgk;rkçkIr laLFkk ds v/;kidksa dks leku osru rFkk eagxkbZ HkÙks dk lank; ugha fd;k tkrk gS rc og ^^leku dk;Z ds fy, leku osru** fl)kar dk vfrØe.k gSA , vkb vkj 1991 ,l lh 1173] , vkb vkj 1982 ,l lh 879 rFkk , vkb vkj 1986 ,l lh 584 vuqlfjrA ¿iSjk 14 ,oa 15
¼8½ U;k;ky; & lgk;rkçkIr laLFkkvksa ds v/;kidksa ds fy, isa‘ku] minku] fpfdRlk HkÙkk rFkk lh lh , dk dksbZ fof/kd mica/k ugha & U;k;ky; bu mica/kksa dk dk;kZUo;u funsf‘kr ugha dj ldrk & og Hkkjh foÙkh; Hkkj ls varoZfyr uhfr dk ekeyk gS & fo/kkueaMy vFkok mlds vfHkdrkZvksa esa ls fdlh ds Hkh dk;Z{ks= ds Hkhrj ekeyksa ds laca/k eas U;k;ky; muds fu.kZ; ds LFkku ij Lo;a dk fu.kZ; çfrLFkkfir ugha djrkA ¼1991½ 3 ,l lh lh 11 vuqlfjrA , vkb vkj 1983 ,l lh 130] 1990 ¼lfIyesaV½ ,l lh lh 306 rFkk , vkb vkj 1988 ,l lh 1663 çHksfnrA ¿iSjk 15 ,oa 16
S.K. Dubey, J.--1. The three petitioners, who are recognised teachers, working as Lecturers in three Government aided institutions (for short, the 'aided institutions'), D.A. V. Higher Secondary School, Naya Bazar, Lashkar, Gwalior; Maharudra MandaI High Secondary School, Lala Ka Bazar, Lashkar, and Laxmibai Smarak Higher Secondary School, Nayi Sarak, Lashkar, Gwalior, to which the State Government pays cent per cent grants-in-aid, have preferred this petition under Article 226 of the Constitution of India, in a representative capacity, for seeking redress of the grievance of the teachers, alike petitioners, by a writ of mandamus or certiorari or any other suitable writ, order or direction ',in the matter of payment of their salary and allowances, and for providing the same benefits and facilities to petitioners and other alike teachers which are being given to the teachers serving in Government institutions.
2. Brief facts leading to this petition are thus: The petitioners and other teachers, like the petitioners, serving in the aided institutions, governed by M.P. ASHASHKIYA SHIKSHAN SANSTHA (ADHYAPAKON TATHA ANY A KARMACHARIYON KE VETANO KA SANDAYA) ADHINIYAM, 1978 (Act No. 20 of 1978), for short, the' Act', have raised a grievance that payment of monthly salary after expiry of the month is not made by 20th of the month next following the month as mandated in section 3 of the Act, and, is disbursed after expiry of six months or so. It is complained that house rent allowance is not paid with the monthly salary, but is paid yearly. It is also complained that fixation of scales of pay and allowances of the recognised teachers or other employees is not sanctioned at par with that of corresponding categories of teachers or other employees in the Government educational institutions. The teachers are discharging the same duties as are being discharged by their counterparts in the Government educational institution, but they are not treated alike. By circular (Annexure P/1) dated 3.9.1990 the Government of Madhya Pradesh have revised the pay scales, bringing them at par with Central Pay Scales and Allowances, of the teachers of aided institutions with effect from 1.7.1990, while the pay scales of the teachers of the Government educational institutions have been revised with effect from 1.8.1989 and the notional fixation of pay has been made under the same pay scales with effect from 1.1.1986. Besides, the disparity in the fixation of revised pay scales, there is a disparity in payment of dearness allowance (D.A.). At the time of the filing of the petition, the Government teachers were getting D.A. at the rate of 58% while D.A. to petitioners was fixed at the rate of 38%. That rate of D.A. has further been increased to Government teachers at the rate of 71 %, but the teachers and other employees of the aided institutions are being paid D.A. at the rate of 38%. The petitioners claim that like the teachers of the Government institutions, the petitioners are entitled to the benefit of medical reimbursement, C.C.A., pension and gratuity. The petitioners also claim that time-bound advancement in the pay scales and promotion has been extended to teachers of the Government institutions vide the State Government Notifications dated 14th February/3rd March, 1986 and 11th June/8th April, 1987 (Annexures P/7 and P/8), but the same has not been given to the teachers or employees of the aided institutions. Disparity in pay and allowances and other benefits to the teachers who are discharging same duties and functions alike the Government teachers; is in disregard to the principle of 'equal pay for equal work', and is violative of Articles 14, 16 (1), 39 (d), 41 and 43 of the Constitution.
3. The three aided institutions in which the three petitioners are working, have made a lukewarm denial, while, in reality, supporting the claim of petitioners.
4. The State of Madhya Pradesh in their return have contended that the terms and conditions of the
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