Hon'ble Devendra Kumar Arora,J.
1.Heard Sri S.K. Kalia, learned Senior Counsel assisted by Sri Sandeep Dixit and Sri Vijai Dixit as well as Sri Jai Deep Narain Mathur, learned Additional Advocate General for the State.
2.Affidavits have been exchanged. With the consent of parties counsel, we proceed to decide the writ petition at the admission stage.
3.The petitioner has been a Cabinet Minister of the State of U.P. for the Department of Family Welfare, Mining and some other departments. He tendered resignation from the State Cabinet on 7.4.2011.It is stated by Sri Kalia, that the petitioner tendered resignation keeping in view the fact that earlier, two doctors of the department of Medical and Health Services, namely, Dr. Vinod Arya and Dr. B.P. Singh, were shot dead by unknown assailants on 27.10.2010 and 2.4.2011. It is alleged that these doctors were shot dead on account of alleged scandal and misappropriation of fund in the department. After resignation, the petitioner was given 'Y-Category Security' along with Escort, by the Government, by the order dated 7.4.2011. However, later on, the petitioner was expelled from the Bahujan Samaj Party on 28.11.2011. Before expulsion, the security provided to the petitioner was reduced from 'Y' to 'X' category by the impugned report dated 7.11.2011 followed by the Government order dated 23.11.2011.
4.While assailing the impugned order, Sri S.K. Kalia learned Senior Counsel submits that from the material on record, there appears to be no difference with regard to threat perception. Further submission of the petitioner's counsel is that after death of Dr. Vinod Arya and Dr. B.P. Singh, one other Deputy Chief Medical Officer Y.S. Sachan was succumbed injuries during his judicial custody in District Jail, Lucknow. Sri Kalia further submits that all three doctors met unnatural death in the State of U.P. because of NRHM and other Scam. He further submits that these two doctors (Dr. Vinod Arya and Dr. B.P. Singh) were shot dead because they were the key-witnesses in the investigation of the case which is pending with the Central Bureau of Investigation.
5.The submission of the petitioner's counsel is that in case the petitioner is eliminated or killed, an important witness with regard to scam, shall not be available and burden with regard to entire scam shall be shifted to his shoulder.
6.The security was provided to the petitioner on the report of the District Level Committee by the State Government, dated 7.4.2011 a copy of which is contained in Annexure No.3 to the writ petition. The relevant portion from the report of the District Level Committee recommending 'Y-Category' security, is reproduced as under: ''२०- सुरक्षा प्रदान करने के सम्बंध में जनपदीय सुरक्षा समिति की कारण सहित स्पष्ट संस्तुतिः-
उक्त महानुभाव वर्तमान प्रदेश सरकार में कैबिनेट मन्त्री रहे हैं तथा इसके पास कई महत्वपूर्ण विभाग रहे हैं, श्री बाबू सिंह कुशवाहा पूर्व मन्त्री एवं एम० एल० सी०, बहुजन समाज पार्टी के वरिष्ठ नेता हैं जिन्हें देश/प्रदेश में पार्टी कार्यक्रमों हेतु भ्रमण पर जाना पड़ता है इनके जीवनभय को दृष्टिगत रखते हुये उक्त महानुभाव को ''वाई श्रेणी'' की सुरक्षा मय स्कोर्ट के प्रदान किये जाने की संस्तुति की जाती है।
7.Attention has been invited to the order dated 7.11.2011 by which the District Level Committee has revisited his report and lowered down the security without escort. According to Sri Kalia, even with regard to subsequent threat perception there appears to be no change and entire threat perception still exists as was existing when the District Level Committee submitted report dated 7.4.2011 to the State Government. It shall be appropriate to reproduce relevant portion from the report dated 7.11.2011, sent by the District Level Committee to State Government, as under: ''5. आवेदक की सामाजि एवं राजनैतिक पृष्ठभूमि--
उक्त महानुभाव वर्तमान समय में बहुजन समाज पार्टी से विधान परिषद सदस्य है तथा पूर्व मे आप कैबिनेट मंत्री उ० प्र० शासन में रह चुके हैं। आवेदक सपरिवार लख्नऊ में निवास करते हैं, पार्टी की जिम्मेदारी होने के कारण जनपद बांदा के अतिरिक्त सम्पूर्ण उ० प्र० में भी आना-जाना पड़ता है।
XX XX XX
9.जीवनभय के विशिष्ट कारणों का विवरण जिन लोगों से जीवनभय की आशंका व्यक्त की गयी हैः-- महानुभाव द्वारा अपने राजनैतिक प्रतिद्वन्दियों से एवं विरोधियों द्वारा द्वेषभावना के चलते जीवनभय महसूस किया जाता है, इसके अतिरिक्त उ० प्र० शासन में पूर्व में रहे मंत्रित्वकाल में लिये निर्णयों के कारण राजनैतिक प्रतिद्वन्दियों से निरन्तर जीवनभय महसूस किया जाता है।
XX XX XX
20. सुरक्षा प्रदान करने के सम्बन्ध में जनपदीय सुरक्षा समिति की कारण सहित स्पष्ट संस्तुतिः--
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उक्त महानुभाव वर्तमान समय में बहुजन समाज पार्टी के सदस्य विधान परिषद हैं तथा आप उ० प्र० सरकार में पूर्व में मंत्री पद पर रहे हैं। आप बसपा के वरिष्ठ नेता हैं। इनके द्वारा मंत्रित्वकाल में लिये गये निर्णयों एवं राजनैतिक प्रतिद्वंदिता के कारण इनके जीवनभय को दृष्टिगत रखते हुए महानुभाव को ''एक्स श्रेणी'' की सुरक्षा प्रदान किये जाने की संस्तुति की जाती है।
ह० अपठनीय ह० अपठनीय ह० अपठनीय 7/11/2011 7/11/2011 7/11/2011 प्रभारी नरीक्षक, पुलिस अधीक्षक जिलाधिकारी स्था० अभि० इकाई बांदा । बांदा । बांदा । ''
8.Comparing aforesaid two reports of the District Level Committee there appears to be no material change, the report seems to be similar with regard to threat perception. Only change is lowering down the security from 'Y-Category' to 'X-Category'. State Government in pursuance thereof, passed impugned order dated 23.11.2011 lowering down security.
9.Attention has been invited to the names of persons who have been granted 'Y-Category' security with escort. It shall be appropriate to reproduce the list of other persons who have been granted the 'Y-Category Security by the State Government, as under: ''वाई श्रेणी स्कोर्ट सहित क्रम सं० नाम पद नाम समिति का निर्णय
1. श्री भीष्म शंकर तिवारी उर्फ कुशल तिवारी मा० सांसद, संतकबीर नगर प्रदत्त वाई श्रेणी की सुरक्षा स्कोर्ट सहित बनाये रखने की संस्तुति की गयी।
2. श्री जितेन्द्र कुमार मा० विधायक, चंदौली प्रदत्त वाई श्रेणी की सुरक्षा स्कोर्ट सहित बनाये रखने की संस्तुति की गयी।
3. श्रीमती सीमा उपाध्याय मा० सांसद, फतेहपुर सीकरी प्रदत्त वाई श्रेणी की सुरक्षा स्कोर्ट सहित बनाये रखने की संस्तुति की गयी।
4. श्री महेन्द्र सिंह राजपूत मा० विधायक, इटावा प्रदत्त वाई श्रेणी की सुरक्षा स्कोर्ट सहित बनाये रखने की संस्तुति की गयी।
5. श्री शिव प्रसाद यादव मा० विधायक, भर्थना, इटावा प्रदत्त वाई श्रेणी की सुरक्षा स्कोर्ट सहित बनाये रखने की संस्तुति की गयी।
6. श्री प्रवीन पटेल मा० विधायक, इलाहाबाद प्रदत्त वाई श्रेणी की सुरक्षा स्कोर्ट सहित बनाये रखने की संस्तुति की गयी।
7. श्री चन्द्र प्रकाश मिश्र मटियारी मा० विधायक, गौरीगंज, छत्रपति शाहूजी महाराज नगर प्रदत्त वाई श्रेणी की सुरक्षा स्कोर्ट सहित बनाये रखने की संस्तुति की गयी।
8. श्री राजेश त्रिपाठी मा० विधायक, चिल्लूपार गोरखपुर प्रदत्त वाई श्रेणी की सुरक्षा स्कोर्ट सहित बनाये रखने की संस्तुति की गयी।
9. श्री एस० आर० लाखा कुलपति गौतमबुद्घ विश्वविद्यालय गौतमबुद्घनगर प्रदत्त वाई श्रेणी की सुरक्षा स्कोर्ट सहित बनाये रखने की संस्तुति की गयी।
10. श्री विनय कुमार शाक्य मा० विधायक, औरैया प्रदत्त वाई श्रेणी की सुरक्षा स्कोर्ट सहित बनाये रखने की संस्तुति की गयी।
11. कु० सन्ध्या कठेरिया मा० विधायक, मैनपुरी प्रदत्त वाई श्रेणी की सुरक्षा स्कोर्ट सहित बनाये रखने की संस्तुति की गयी।''
10.A plain reading of the aforesaid 'Y-Category' Security with Escort, reveals that even MLAs who were not Cabinet Minister or holding any important post, have been granted 'Y-Category Security' with Escort. The list further contains the names of persons who have been granted 'Y-Category' Security without Escort. They are as under: ''वाई श्रेणी क्रम सं० नाम पद नाम समिति का निर्णय
1. मो० इकबाल मा० सदस्य, विधान परिषद सहारनपुर प्रदत्त वाई श्रेणी की सुरक्षा बनाये रखने की संस्तुति की गयी।
2. श्री जगदीश सिंह राणा मा० सांसद, लोकसभा, सहारनपुर प्रदत्त वाई श्रेणी की सुरक्षा बनाये रखने की संस्तुति की गयी।
3. श्री मुकुल उपाध्याय मा० सदस्य, विधान परिषद प्रदत्त वाई श्रेणी की सुरक्षा बनाये रखने की संस्तुति की गयी।
4. डा० अखिलेश दास मा० सांसद, राज्य सभा लख्नऊ प्रदत्त वाई श्रेणी की सुरक्षा बनाये रखने की संस्तुति की गयी।
5. ठाकुर जयवीर सिंह मा० मंत्री, ग्रामीण अभियंत्रण सेवा, उ० प्र० प्रदत्त वाई श्रेणी की सुरक्षा बनाये रखने की संस्तुति की गयी।
6. श्री रविशंकर सिंह (पप्पू सिंह) मा० सदस्य विधान परिषद, बलिया प्रदत्त वाई श्रेणी की सुरक्षा बनाये रखने की संस्तुति की गयी।
7. श्री मनोज कुमार पाण्डेय पूर्व अध्यक्ष नगर पालिका परिषद रायबरेली।
प्रदत्त वाई श्रेणी की सुरक्षा बनाये रखने की संस्तुति की गयी।
8. श्री दिनेश प्रताप सिंह मा० सदस्य विधान परिषद, रायबरेली प्रदत्त वाई श्रेणी की सुरक्षा बनाये रखने की संस्तुति की गयी।
9. श्री कलराज मिश्र मा० सांसद राज्यसभा प्रदत्त वाई श्रेणी की सुरक्षा बनाये रखने की संस्तुति की गयी।
10. श्री विश्वनाथ चतुर्वेदी अधिवक्ता मा० उच्चतम न्यायालय प्रदेश भ्रमण/प्रवास के दौरान प्रदत् वाई श्रेणी की सुरक्षा की संस्तुति की गयी है।
11. श्री स्वामी प्रसाद मौर्य मा० मंत्री, उ० प्र० प्रदत्त वाई श्रेणी की सुरक्षा बनाये रखने की संस्तुति की गयी।
12. श्री कादिर राणा मा० सांसद, मुज़फ्फरनगर प्रदत्त वाई श्रेणी की सुरक्षा बनाये रखने की संस्तुति की गयी।
13. श्री रंगनाथ मिश्रा पूर्व मंत्री, भदोही प्रदत्त वाई श्रेणी की सुरक्षा बनाये रखने की संस्तुति की गयी।
14. श्री आशीष बाथम आचार्य, नई दिल्ली 2जी स्पेक्ट्रम का गवाह (अस्थाई पता गाजियाबाद) प्रदेश भ्रमण/प्रवास के दौरान प्रदत् वाई श्रेणी की सुरक्षा की संस्तुति की गयी।
15. श्री रामजी सिंह कुशवाहा ज्वाइंट वायरलेस एडवाइजर, नई दिल्ली प्रदेश भ्रमण/प्रवास के दौरान प्रदत् वाई श्रेणी की सुरक्षा की संस्तुति की गयी।
16. श्री राजपाल सिंह सैनी मा० सांसद सदस्य, मुज़फ्फरनगर प्रदत्त वाई श्रेणी की सुरक्षा बनाये रखने की संस्तुति की गयी।''
11.From the aforesaid list, it appears that the security has been granted to different persons without keeping in mind their status or comparative threat perception. The grant of security of 'Y-Category' to MLAs has no port folio of legal authorities, and seems to make out a case that no consideration of comparative threat perception has been done in grant of 'Y-Category Security and lowering down the security to the petitioner. No uniform principle seems to have been adopted by the Government while granting security.
12.The law is very well settled that the State must exercise its discretionary power in just and fair manner without being influenced by extraneous consideration. The petitioner was expelled from the Bahujan Samaj Party on 28.11.2011 and just before a week, his security was lowered down that too, on unfounded grounds. Once the two reports of the District Level Committee with regard to grant of security, are materially, the same then there appears to be no justification to lower down the petitioner's security from 'Y-Category with Escort' to that of 'X-Category '.
13.While deciding the [2007 (25) LCD 1266]: Vijay Shanker Tripathi and others. Vs. Hon'ble High Court of Judicature at Allahabad and others, [Writ Petition No.3690 (M/B) of 2007:Vijay Shanker Tripathi and others. Vs. Hon'ble High Court of Judicature at Allahabad and others], a Division Bench of this Court, of which one of us (Hon'ble Mr. Justice Devi Prasad Singh) was a member, by a judgment and order dated 22.6.2007, considered the discretionary power of the State Government, as to how and in what manner, the State should exercise its discretionary power. Any decision of the State Government must be based on factual analysis of material on record. The State Government has mechanically accepted the recommendation sent by the District Level Committee for lowering down the security provided to the petitioner without taking note of the fact that there is no material change in the two reports of the District Level Committee with regard to threat perception to the petitioner. Accordingly, the impugned order passed by the State Government seems to be an instant if non-application of mind and based on unfounded facts.
14.While deciding another Writ Petition No.980 (S/B) of 2007: Dr. Yaduvir Singh. Vs. State of U.P. and others, by judgment and order dated 7.10.2010, a Division Bench of this Court (delivered by one of us Hon'ble Mr. Justice Devi Prasad Singh), considered as to how the State Government should exercise its discretionary power, to reproduce relevant portion as under: "21. According to Webster's Encyclopaedia Unabridged Dictionary (1994), p.411, the "Discretion" means the power, right or liberty to decide one way or the other, to act according to one's own judgment; freedom of choice; to be completely under one's power or control; the freedom to decide what should be done in a particular situation.
22.In Rooke' case, (1598) 5 Co Rep 99b (100a), the "Discretion" proclaimed, Coke, "is a science of understanding to discern between falsity and truth, between right and wrong, between shadows and substance, between equity and colourable glosses and pretences, and not to do according to their wills and private affections.
23.In Sharp v. Wakefield, reported in 1891 AC 173, 179, Lord Halsbury rightly observed as under:- ''[D]iscretion' means when it is said that something is to be done within the discretion of the authorities that something is to be done according to the rules of reason and justice, not according to private opinion..... according to law and not humour. It is to be, not arbitrary, vague, and fanciful, but legal and regular. And it must be exercised within the limit, to which an honest man competent to the discharge of his office ought to confine himself...."
24.Hon'ble Supreme Court in a case reported in 2004(2) SCC 590; Union of India v. Kuldeep Singh has held that the discretion is to know through law what is just. To quote:- "Discretion is to know through law what is just. Where a judge has and exercises a judicial discretion his order is unappealable unless he did so under a mistake of law or fact or in disregard of principle, or after taking into account irrelevant matters. It will help to show this if it can be shown that there were no materials on which he could exercise his discretion in the way he did......" Their Lordships of Hon'ble Supreme Court further proceeded to hold as under:-
"20. When anything is left to any person, judge or Magistrate to be done according to his discretion, the law intends it must be done with sound discretion, and according to law. (See Tomlin's Law Dictionary) In its ordinary meaning, the word "discretion" signifies unrestrained exercise of choice or will; freedom to act according to one's own judgment; unrestrained exercise of will; the liberty or power of acting without control other than one's own judgment. But, when applied to public functionaries, it means a power or right conferred upon them by law, of acting officially in certain circumstances according to the dictates of their own judgment and conscience, uncontrolled by the judgment or conscience of others. Discretion is to discern between right and wrong; and therefore, whoever hath power to act at discretion, is bound by the rule of reason and law. (See Tomlin's Law Dictionary)
21. Discretion, in general, is the discernment of what is right and proper. It denotes knowledge and prudence, that discernment which enables a person to judge critically of what is correct and proper united with caution; nice discernment, and judgment directed by circumspection; deliberate judgment; soundness of judgment; a science or understanding to discern between falsity and truth, between wrong and right, between shadow and substance, between equity and colourable glosses and pretences, and not to do according to the will and private affections of persons. When it is said that something is to be done within the discretion of the authorities, that something is to be done according to the rules of reason and justice, not according to private opinion; according to law and not humour. It is to be not arbitrary, vague, and fanciful, but legal and regular. And it must be exercised within the limit, to which an honest man, competent to the discharge of his office out to confine himself (per Lord Halsbury, L.C., in Sharp v. Wakefield). (Also see S.G. Jaisinghani v. Union of India)
22. The word ''discretion' standing single and unsupported by circumstances signifies exercise of judgment, skill or wisdom as distinguished from folly, unthinking or haste; evidently therefore a discretion cannot be arbitrary but must be a result of judicial thinking. The word in itself implies vigilant circumspection and care; therefore, where the legislature concedes discretion it also imposes a heavy responsibility. "The discretion of a judge is the law of tyrants; it is always unknown. It is different in different men. It is casual, and depends upon constitution, temper and passion. In the best it is often times caprice; in the worst it is every vice, folly, and passion to which human nature is liable." Said Lord Camden, L.C.J., in Hindson and Kersey".
25.In view of above in case the statutory discretion is vested in an authority then such discretion should be exercised not in arbitrary, whimsical and fanciful manner. It must be reflected from the outcome of event that the authority concerned has exercised discretion within the sound principle of law, skill and wisdom with vigilant circumspection and care. The discretionary power imposes a heavy responsibility on a person or authority. The latitude or liberty accorded by statute, Circular or Order to the higher authority does not permit to exercise such power in unjust and unfair manner. In the case of Kuldeep Singh (supra), their Lordships of Apex Court further held as under:- " If a certain latitude or liberty is accorded by a statute or rules to a judge as distinguished from a ministerial or administrative official, in adjudicating on matters brought before him, it is judicial discretion. It limits and regulates the exercise of discretion, and prevents it from being wholly absolute, capricious, or exempt from review."
15.Apart from the above, right to life and liberty is guaranteed under Article 21 of the Constitution. Though, everyone cannot be provided security but once the State Government takes a decision to provide security to a person, then while lowering down or increasing the security, its discretionary power must be exercised with regard to grant of lowering or increasing security on the basis of subjective consideration of the case. The decision must be based on factual analysis and material available on record. It should not be dealt with mechanically.
16.There is one other reason which requires interference by this Court in the present writ petition under Article 226 of the Constitution of India. Admittedly, two doctors as stated above, were shot dead in the city of Lucknow who were the key-witness in the NRHM Scam against which a CBI inquiry is pending. Besides, one Deputy Chief Medical Officer of Lucknow city was laid to unnatural death in District Jail, Lucknow.,He was also an employee of the Department of which, the petitioner was the Minister. In such a situation, needless to say that life of the petitioner is precious as not only he has to establish his innocence but also is a key witness in the pending investigation before the CBI. In view of the above, the writ petition deserves to be allowed.
17.Accordingly, the writ petition is allowed. A writ in the nature of certiorari is issued quashing the impugned order dated 23.11.2011 to the extent it relates to the petitioner with consequential benefit. The security provided to the petitioner in pursuance of the report dated 7.4.2011, shall continue with liberty to take fresh decision keeping in view the observations made hereinabove and in the event of changed circumstances. [Justice Devendra Kumar Arora] [Justice Devi Prasad Singh] Order Date :- 22.12.2011 Rajneesh AR-PS)