Court No. - 27
Case :- WRIT - C No. - 13094 of 2018 Petitioner :- Rajesh Kumar Singh Respondent :- State Of U.P. And 4 Others Counsel for Petitioner :- Vinod Kumar Sharma Counsel for Respondent :- C.S.C.,Ramesh Chandra Upadhyay
Hon'ble Ajay Bhanot,J.
1. The petitioner was a fair price shop dealer of village panchayat Bharkhokha, District Ballia. A show cause notice was issued to the petitioner on 8.2.2017 alleging certain malpractices and irregularities in distribution of essential commodities. The petitioner promptly submitted a reply on 23.2.2017 to the show cause notice refuting the charges laid out against him.
2. The reply submitted by the petitioner and other material in the record was considered by the licensing authority. The licencing authority by order dated 23.3.2017 restored the fair price shop licence of the petitioner after imposing a fine of Rs. 5,000/- and censuring his conduct. A warning was also taken out against the petitioner.
3. On a complaint an enquiry was initiated against the petitioner. The enquiry report was submitted on 1.4.2017 against the petitioner. The petitioner was asked to produce copies of the stock and distribution registers by an order dated 22.4.2017 passed by respondent No. 2.
4. The petitioner failed to submit the required documents before the respondent No. 2. The fair price shop licence of the petitioner was cancelled by the respondent No. 2 by an order dated 21.6.2017. The order of cancellation was taken in appeal before the Appellate Authority by the petitioner. The Appellate Authority rejected the appeal of the petitioner by an order dated 24.1.2018 passed in appeal No. 358-B, (Rajesh Kumar Singh versus District Supply Officer, Ballia), which was instituted before the Court of Commissioner, Azamgarh Division, Azamgarh.
5. The petitioner thus aggrieved, has assailed the order of cancellation dated 21.6.2017 passed by the respondent No. 2 and the order dated 24.1.2018 passed by the Appellate Authority rejecting the appeal.
6. Shri Vinod Kumar Sharma, learned counsel for the petitioner broadly submits that the proceedings were conducted in a manner not known to law and in gross violation of principles of natural justice. The proceedings being vitiated, the impugned orders are liable to be set aside.
7. More specifically, the learned counsel for the petitioner also contends that no show cause notice was issued prior to the passing of the order of termination. He contends that the enquiry report dated 1.4.2017 which was adverse to the petitioner and relied upon while passing the order of termination, was not furnished to him. The petitioner was not aware of the charges laid out against him. The petitioner could not tender his defence against the charges.
8. Per contra, the learned Standing Counsel contends that the order of termination was passed in accordance with law. It is an speaking order and is based on material available in the record.
9. By the order dated 11.4.2018 the learned Standing Counsel was directed to obtain instructions in this regard to facilitate the final disposal of this matter. The instructions are available with the learned Standing Counsel along with the relevant record.
10. The submissions made at the bar are purely based on the records of the lower courts, which now form part of the writ petition. No useful purpose will be served by calling for a detailed counter affidavit and to keep the matter pending indefinitely.
11. With the consent of the parties, the matter is being decided finally.
12. Upon consideration of the submissions made at the bar and the perusal of the records, some facts are established beyond any doubt and beyond the pale of any dispute. On the basis of the instructions received and record furnished by the respondents the learned Standing Counsel fairly concedes that no show cause notice was issued to the petitioner, prior to the passing of the orders of cancellation of licence. Thus, it is an admitted case between the parties that no show cause notice was issued to the petitioner before the termination of the licence.
13. The learned Standing Counsel has however called attention to the order dated 22.4.2017 passed by the respondent No. 2 to defend the action of the authorities.
14. The perusal of the order of 22.4.2017, which has been brought in the record of the writ petition and bears the letter No.
103/उपजिजिला–आपजूतित/017 only calls upon the petitioner to provide the distribution register to the supply inspector. A letter of like date i.e. 22.4.2017, numbered as letter No.
76/िजि0 पजूत0 अ 0−दु0 अनु0/2017 was also relied upon by the learned Standing Counsel to contend that the principles of natural justice were complied with.
15. The said order are reproduced here-under:
“dk;kZy; ftyk iwfrZ vf/kdkjh cfy;k i=kad 76@ft0iw0v0&nq0vuq0@2017 fnukad 22 vizSy 2017 Jh jkts'k flag m0n0fc0 dsUnz&Hkj[kks[kk] fc0[k0&csygkjhA Jh ftrsUnz ;kno] iadt ;kno o vU; fuoklhx.k xzke g`n;pd] xzke lHkk& c?kÅWp ds }kjk bl vk'k; dh f'kdk;r dh x;h fd muds xzke iapk;r ds mfpr nj nqdku Jh jke izlkn dh nqdku fujLr gksus ds dkj.k mDr nqdku Jh jkts'k flag mfpr nj fodzsrk dsUnz&Hkj[kks[kk ls lEc) Fkh ysfdu mDr Hkj[kks[kk ds nqdkunkj }kjk mUgsa xsgwW] phuh o feV~Vh rsy dk forj.k ugha fd;k x;k gSA mDr f'kdk;r dh tkWp [k.M fodkl vf/kdkjh csygjh }kjk fd;k x;k gSA [k.M fodkl vf/kdkjh] csygjh ds }kjk vius dk;kZy; i=kad&849@ f'kdk0 fuLrkj.k@2016&17 fnukad 16 ekpZ 2017 ds }kjk voxr djk;k x;k fd iz'uxr izdj.k dh tkWp lgk;d fodkl vf/kdkjh ¼lg0½ o voj vfHk;ark ¼y?kq flapkbZ½ fodkl [k.M csygjh }kjk mudh ns[k&js[k esa djk;h x;hA tkWp vf/kdkjh }; dh tkWp vk[;k ds vk/kkj ij ;g ifjyf{kr gksrk gS fd mfpr nj fodzsrk Jh jkts'k dqekj dsUnz&Hkj[kks[kk }kjk jk'ku forj.k esa ?kksj vfu;ferrk ,oa dkykcktkjh dh x;h gSA tkWp vk[;k layXu djrs gq, vko';d dk;Zokgh gsrq izsf"kr fd;k x;k gSA tkWp vf/kdkjh }; dh tkWp vk[;k esa dgk x;k gS fd mDr f'kdk;r dh LFkyh; ,oa vfHkys[kh; la;qDr tkWp gsrq loZizFke Jh jkts'k dqekj mfpr nj fodzsrk dsUnz&Hkj[kks[kk dks ekg tuojh 2017 dk jk'ku forj.k jftLVj tkWp gsrq miyC/k djkus gsrq fnukad 13-02-2017 dks i= tkjh fd;k x;k] ijUrq Jh jkts'k dqekj }kjk mdr i= ysus ls bUdkj dj fn;k x;kA iqu% muds }kjk fodzsrk ds forj.k dsUnz ij tkdj ekSds ij ekSf[kd :i ls forj.k jftLVj dh ekWx dh x;hA ijUrq ogkW Hkh okafNr forj.k jftLVj miyC/k djkus esa og vleFkZ jgsA og b/kj&m/kj dk cgkuk cukus yxs] ftlls ,slk izrhr gqvk fd mDr forj.k jftLVj buds }kjk ugha cuk;k x;k gS vkSj u gh dkMZ/kkjdksa esa jk'ku] phuh ,oa feV~Vh dk rsy dk forj.k gh fd;k x;k gSA iqu% muds }kjk forj.k gsrq ftykf/kdkjh egksn; cfy;k ds }kjk ukfer i;Zos{kdksa dh fjiksVZ eWxk;h x;h ftlesa mDr dsUnz ij ukfer i;Zos{kd Jh izse izdk'k flag xzke fodkl vf/kdkjh us 25&01&2017 dks miftykf/kdkjh egksn; dks lEcksf/kr viuh vk[;k esa fy[kk gS fd ^*mDr dsUnz ij mDr frfFk dks Jh jkts'k flag }kjk forj.k ugha fd;k x;k gSA^* nwljs ukfer i;Zos{kd Jh olhe vgen] ofj"B lgk;d fyfid us Hkh miftykf/kdkjh lnj dks lEcksf/kr viuh vk[;k esa fnukad 23&01&2017 dks fyf[kr :i ls voxr djk;s gS fd ^*Jh jkts'k dqekj }kjk forj.k gsrq iwoZ fu/kkZfjr frfFk 07&01&2017 dks forj.k dkMZ/kkjdksa esa ugha fd;k x;k gSA^* iqu% [k.M fodkl vf/kdkjh csygjh ds dk;kZy; ds bUMsDl la0& 1062 ,oa 1063 fnukad 27&01&2017 ds dze esa izHkkjh lgk;d fodkl vf/kdkjh ¼iapk;r½ us fyf[kr :i ls fnukad 29&01&2017 dks tkWp fjiksVZ [k.M fodkl vf/kdkjh dk;kZy;] csygjh dks nh x;h] ftlesa Hkh mUgksaus jk'ku ,o feV~Vh dk rsy forj.k esa vfu;ferrk dh iqf"V dh gSA rnksijkUr tkWp vf/kdkjh }; }kjk iwoZ fu/kkZfjr dk;Zdze ds vuqlkj fnukad 02&03&2017 dks izk0 ik0 g`n;pd ij dkMZ/kkjdksa dks cqyk;k x;k] tgkW 5 vUR;ksn; dkMZ/kkjdksa] ftuds uke 1& jkekuUn fxfj] 2& nzksinh] 3& vydk nsoh] 4& Jhjke ;kno] 5& dhuy ;kno ,oa ik= x`gLFkh ds 15 dkMZ/kkjdksa ftuds uke 1& lq'khyk nsoh] 2& eU'kk nsoh] 3& izhfr] 4& fjadw nsoh] 5& ek;k nsoh] 6& pUnk nsoh] 7& ftrs'k ;kno] 8& iadt ;kno] 9& ftrsUnz ;kno] 10& cjes'oj ;kno] 11& vkseizdk'k ;kno] 12& 'k=q/ku ;kno] 13& jkts'ojh nsoh] 14& Jhd`".k ;kno] 15& eqUuh nsoh us mifLFkr gksdj vius 'kiFk i= esa fy[ks x;s dFku@vkjksiksa@f'kdk;rksa dh iqf"V dh ,oa ,d Loj esa jk'ku ,oa feV~Vh rsy ekg tuojh 2017 dk forj.k ugha djus dk vkjksi mDr Jh jkts'k dqekj] mfpr nj fodzsrk dsUnz&Hkj[kks[kk ds fo:) yxk;kA vr% dkMZ/kkjdksa dk c;ku] i;Zos{kdksa ds fjiksVZ] lgk;d fodkl vf/kdkjh ¼ia0½ ds fjiksVZ ,oa forj.k jftLVj miyC/k u djkus ls izFke n`"V;k Jh jkts'k dqekj mfpr nj fodzsrk dsUnz&Hkj[kks[kk ds fo:) dkMZ/kkjdksa }kjk yxk;s x;s vkjksi lgh izekf.kr gksrk gSA tkWp vk[;k] 20 'kiFk i= ,oa lEcaf/kr vfHkys[k ewy:i esa layXu vko';d dk;Zokgh gsrq iszf"kr fd;k x;k gSA [k.M fodkl vf/kdkjh] csygjh] }kjk izsf"kr tkWp vk[;k] 20 'kiFk i= ,oa vfHkys[k dh tkWp gsrq bl dk;kZy; ds i= la[;k& 1650@ft0iw0v0&nq0vuq0@2017 fnukad 23 ekpZ 2017 ds }kjk Jh fnus'k dqekj] {ks=h; [kk| vf/kdkjh ¼eq0½] Jh jkds'k dqekj fu"kkn] iwfrZ fujh{kd ¼eq0½ o Jh fnyhi dqekj flag iwfrZ fujh{kd ¼eq0½ dh Vhe xfBr djrs gq, tkWp gsrq funsZf'kr fd;k x;kA ftldh tkWp iwfrZ fujh{kd ¼eq0½ }; }kjk fnukad 01&04&2017 dks ekSds ij tkdj fd;k x;kA iwfrZ fujh{kd] }; dh tkWp vk[;kuqlkj loZizFke os xzke&g`n;pd] xzkelHkk&c?kÅWp] fo0[k0&csygjh igqWps tgkW mfpr nj fodzsrk Jh jkts'k dqekj flag ds f[kykQ fn;s x;s gyQukesa dh iqf"V 18 'kiFkdrkZvkas }kjk dh x;hA lkFk gh viuk gLrk{kj ,oa vaxwBk fu'kku cuk;k x;kA tcfd nks 'kiFkdrkZ vuqifLFkr FksA ik= x`gLFkh dh vkWuykbu lwph ls feyku djus ij izhrh nsoh o vydk nsoh dks NksM+dj lkjs ik= x`gLFkh 'kiFkdrkZvkas ds uke c?kÅWp ds ik= x`gLFkh lwph esa 'kkfey gSA g`n;pd ds 'kiFkdrkZvkas dh tkWp ds ckn ge mfpr nj fodzsrk Jh jkts'k dqekj flag ds i{k esa fn;s x;s 'kiFk i=ksa dh tkWp gsrq xzke Hkj[kks[kk] fo0[k0&csygjh igaqWps tgkW nqdkunkj Jh jkts'k dqekj flag ds i{k esa 'kiFkdrkZvkas us viuk c;ku fn;k vkSj viuk gLrk{kj o vxwWBk fu'kku cuk;kA Hkj[kks[kk ds 'kiFkdrkZvkas esa nkeksnj iq= uUnth] y{e.k iq= cStukFk] enu iq= cStukFk] jken;ky iq= f'kockyd vuqifLFkr ik;s x;sA tcfd 'kiFkxrkZ lqnkek fxfj xzke g`n;pd iks0&ckcwcsy] fo0[k0&csygjh us nqdkunkj ds fojks/k esa viuk 'kiFk i= dks QthZ crk;k rFkk nqdkunkj ds fojks/k esa viuk gLrk{kj cuk;kA [k.M fodkl vf/kdkjh] csygjh o iwfrZ fujh{kd }; dh tkWp vk[;k o dkMZ/kkjdksa ds uksVjh 'kiFk i= ls Li"V gS fd fodzsrk jkts'k dqekj flag }kjk vUR;ksn; dkMZ/kkj Jh fduy ;kno iq= jek'kadj ;kno] Jh jke ;kno iq= j?kqukFk ;kno] nzksinh nsoh iRuh lfpnkuUn] jkekuUn fxfj iq= /keZnso fxfj rFkk ik= x`gLFkh dkMZ/kkjd lq'khyk iRuh dfoykl dkMZ la0&219330307803 ;wfuV&5] eulk iRuh LokehukFk&21933027770 ;wfuV&5] fjadw iRuh c`ts'k&219340327109 ;wfuV la0&3] ek;k iRuh v'kksd&219340327107 ;wfuV la0&6] pUnk iRuh lR;sUnz fxfj&219330278369 ;wfuV la0&8] ftrs'k iq= xqIrs'oj& 219340327099 ;wfuV la0&3] iadt iq= dUgS;k&219330307785 ;wfuV la0&4] ftrsUnz iq= xqIrs'oj&219330312112 ;wfuV la0&4] cjes'oj iq= gsek&219330312180 ;wfuV la0&5] vkseizdk'k iq= dSyk'k& 219330312149 ;wfuV la0&1] 'k=q/ku iq= dSyk'k&219330312167 ;wfuV la0&6] jkts'ojh iRuh xqIrs'oj&219330312136 ;wfuV la0&7] Jhfd'kqu iq= j? kqukFk&219330317776 ;wfuV la0&1 o eqUuh iRuh fNrs'oj&219310325277 ;wfuV la0&8 dkMZ/kkjdksa esa ekg tuojh 2017 esa [kk|kUu dk forj.k ugha fd;k x;k gSA bl izdkj Jh jkts'k dqekj mfpr nj fodzsrk dsUnz&Hkj[kks[kk ds }kjk vUR;ksn; ds 04 dkMZ/kkjdksa esa 0-80 dq0 xsgwW] 0-60 dq0 pkoy rFkk ik= x`gLFkh dkMZ/kkjdksa ds 14 dkMZ/kkjdksa ds dqy 66 ;wfuV ij 1-98 dq0 xsgwW o 1-32 dq0 pkoy rFkk vUR;ksn; dkMZ/kkjdksa esa izfr dkMZ 02 fdxzk0 o ik= x`gLFkh esa 800 xzke izfr dkMZ phuh dk forj.k ugha fd;k x;k gSA iqu% mDr mfpr nj fodzsrk }kjk fyf[kr :i ls voxr djk;k x;k gS fd muds }kjk ekg vizSy 2017 esa [kk|kUu dk forj.k ugha fd;k x;k gS D;ksafd i;Zos{k.kh; vf/kdkjh forj.k ds le; mifLFkr ugha FksA fodzsrk dk mDr d`R; ?kksj vfu;ferrk dk |ksrd ,oa vuqca/k i= dh 'krkasZ dk Li"V mYya?ku gSA bl gsrq rRdky fodzsrk dks funsZf'kr fd;k tkrk gS fd og nks fnu ds vUnj forj.k dj forj.k jftLVj dh Nk;kizfr dk;kZy; esa izLrqr djsa rFkk ekg tuojh 2017 ftu vUR;ksn;@ ik= x`gLFkh dkMZ/kkjdksa esa [kk|kUu dk forj.k ugha fd;k x;k gS muds dkMZ@;wfuV ds vuqlkj lEcaf/kr dkMZ/kkjd ds [kkrs esa mDr [kk| kUu@phuh ds cktkj Hkko ds ewY; tek dj ikorh jlhn dk;kZy; esa izLrqr djsaA ;fn le;kUrxZr mijksDr vkns'kksa dk vuqikyu lqfuf'pr ugha fd;k tkrk gS rks fodzsrk ds fo:) mDr d`R; ds n`f"Vxr izFke lwpuk fjiksVZ ntZ djk nh tk;sxhA izfrfyfi%& g0 viBuh; ftyk iwfrZ vf/kdkjh] cfy;k
1- miftykf/kdkjh] lnj&cfy;k dks lwpukFkZ ,oa vko';d dk;Zokgh gsrqA
2- iwfrZ fujh{kd] csygjh dks bl funsZ'k ds lkFk fd ekg vizSy 2017 dk [kk|kUu dk forj.k djkus ,oa ekg tuojh 2017 esa oafpr dkMZ/kkjdksa ds [kkrs iSlk tek djkus dh dk;Zokgh lqfuf'pr djrs v/kksgLrk{kjh dks vuqikyu vk[;k miyC/k djk;saA g0 viBuh; ftyk iwfrZ vf/kdkjh] cfy;k”
16. The aforesaid order i.e. No. 76/िजि0 पजूत0 अ 0−दु0 अनु0/2017 dated 22.4.2017 recites a catalogue of irregularities allegedly committed by the petitioner. However, the aforesaid order does not ask the petitioner to show cause against the alleged irregularities or tender his defence to the same on the pain of termination of his licence. The order also does not disclose the intention of the authorities to impose punishment and nature of such punishment if any. The order cannot be called a show cause notice by any stretch of imagination. Secondly, the petitioner was required by the letter of 22.4.2017 to submit the said documents within two days. This is not a reasonable time frame even to submit documents leave alone to prepare a defence and tender it before the authorities.
17. The learned counsel for the petitioner has specifically pleaded that the aforesaid letter was not served upon the petitioner. Nothing has been shown from the record that the aforesaid order was served upon the petitioner. In view of the admitted position in the record, it is concluded that the order impugned was passed without serving the order dated 22.4.2017 bearing No. 76/िजि0 पजूत0 अ 0−दु0 अनु0/2017, upon the petitioner. The said order contains material adverse to the petitioner.
18. Ingredients of a valid show cause notice require that a clear statement of charges against the noticee should be laid out with material particulars. The documents and materials on which the charges are founded and any adverse material proposed to be relied upon against the petitioner in the proceedings should also be served alongwith the show cause notice. The show cause notice should provide a reasonable time to the noticee to submit his reply to the charges laid out against him. The show cause notice should be duly served upon the noticee. The punishment which is proposed in the event of the charges being proved should also be disclosed in the show cause notice. A notice of this nature will alert the noticee of the case against him and enable him to prepare and tender an effective defence. Admittedly, the requirements of a valid show cause notice have not been satisfied in the facts and circumstances of the case. The order dated 22.4.2017 is not a show cause notice. The impugned order of termination of license visits the petitioner with penal consequences. No show cause notice was issued to the petitioner and no opportunity of hearing was given to the petitioner before passing the order of termination. The order of termination dated 21.6.2017 was passed in violation of principles of natural justice. The prejudice caused to the petitioner by non observance of principles of natural justice is beyond recall. The petitioner could not tender his defence and his case went undefended in the termination proceedings. Consequently, the proceedings are vitiated and are rendered illegal.
19. The Appellate Authority failed to redeem the illegalities committed in the order of respondent No. 2. A specific objection was taken before the appellate authority that no show cause notice was issued prior to the termination order against the petitioner. The Appellate Court failed to advert to the specific objection and other grounds raised before the Appellate Authority in the memo of appeal. The order dated 24.1.2018 is silent on the aforesaid issues.
20. The appellate authority is the last trier of facts. It is under an obligation of law to advert to and independently apply its mind to the grounds raised in the memo of appeal. The appellate authority is further charged with the duty to return independent findings by a speaking order on the germane grounds raised before it. Clearly in the facts of the case, the appellate authority has failed to discharge its obligations in law.
21. I hold the orders impugned dated 21.6.2017 passed by District Supply Officer-respondent No. 2 and the order dated 24.1.2018 passed by the Commissioner, Azamgarh Division, Azamgarh are arbitrary and illegal. The orders dated 21.6.2017 passed by respondent No. 2-District Supply Officer, Ballia and 24.1.2018 passed by respondent No. 3- Commissioner Azamgarh Division, Azamgarh are quashed. The writ petition is allowed.
22. The matter is remanded back to the respondent No. 3. The respondent No.3 shall proceed against the petitioner consistently with the observations made in this judgment and in accordance with law, within a period of one month from the date of service of a certified copy of this order.
Order Date :- 24.4.2018 Ravi Prakash