ORDER A.P. Misra, J.
1. The petitioner has filed the aforesaid four petitions and they are interconnected both on facts and arise out of either consequential orders or for the purpose of enforcement of the right depending on facts of earlier writ petitions. Writ Petitions Nos. 7009 of 1986, 15224 of 1986 and 1944 of 1987 have been admitted and writ no, 8013 of 1987 was not admitted and was directed to be listed for admission along with the aforesaid writ petitions. Since common argument was made in all these petitions both by the petitioner and the respondents and counter and rejoinder affidavits have been exchanged between the parties they are being disposed of finally in accordance with the Rules of Court by means of this common judgment.
2. The petitioner-firm obtained a Gas Agency from M/s. Bharat Petroleum Corpn. under scheduled caste quota and an agreement was executed for the same between Messrs Bharat Petroleum Corporation Ltd. and the petitioner on 21st March, 1983. The petitioner-firm were appointed as the distributors at Hathras in district Aligarh for the distribution of L.P.G. (Cooking Gas). Writ petition No. 7009 of 1986 arises out of a First Information Report lodged on 28-2-1986 at Police Station Hathras Gate, Hathras, District Aligarh u/S, 3/7, Essential Commodities Act, Crime Case No. 45, both as against the Proprietor Shyam Lal Maurya as well as against the Manager of the petitioner firm. The charges levelled in the FIR were that the distribution of the gas cylinders was not made to the proper persons and the names of four persons were given to show that gas was alleged to have been issued to them but they did not receive the same. Further, the rate board and stock board were not properly maintained. It referred the violation of cls. 3, 4, 5 and 8 of U.P. Essential Commodities (Display of Prices and Stocks and Control of Supply and Distribution) Order, 1977. There were some other charges also levelled in the FIR. On account of verification by the Audit Department the godown and the show-room of the petitioner was alleged to have been closed from 22nd to 27th February, 1986, and the FIR was lodged on the next day, i.e. 28th February, 1986. Both the proprietor and the Manager of the firm filed a petition in this Court u/S. 482, Cr. P.C. wherein arrest of these two persons were stayed. On the date, the raiding party reached the godown of the petitioner the District Supply Officer also ordered for the sealing of the godown. The petitioner further urged that the police investigation reached the conclusion that no case was made out against the petitioner-firm or against its Proprietor or the Manager. Further, it was alleged that the aforesaid 1977 Order does not apply to the petitioner-firm as they are neither retailer or wholesaler but they are only distributor and in any case the petitioner had not committed any offence under the aforesaid Order. Thus, they sought for quashing of the aforesaid FIR along with the quashing of orders dated 7th March, 1986 (Annexure 5), 24th March, 1986 (Annexure 6), 29th March, 1986 (Annexure 8) and 24th April, 1986. In fact, Annexure 5 is a letter dated 8th March, 1986, of the A.D.M. (Civil Supplies) directing Hathras Gas Agency to undertake the distribution of gas cylinders of the petitioner, which were seized on 28-2-1986 and thereafter this order was amended by means of order dated 24th March, 1986 (Annexure 6 to the petition). Thereafter, it was directed that the said gas cylinders of the petitioner should be distributed by the U.P. State Food and Essential Commodities Corporation Ltd. through its District Manager. Similarly, notice dated 29th March, 1986 (Annexure 8 to the petition) was issued u/ S. 3(1) of the U.P. Accommodation Requisition Act, 1947, for requisitioning the go-down, which had been sealed. This proceeding, according to the petitioner, was taken in addition so as to sustain the illegal action in case of its failure on prosecuting the petitioner under the Essential Commodities Act and finally the concerned authority passed an order dated 24th April, 1986 (Annexure 10) requisitioning the said godown u/S. 3(2) of the said Act. On 17th July, 1986, this Court stayed the operation of the three impugned orders dated 7-3-1986 (Annexure 5), order dated 24-3-1986 (Annexure 6) and dated 24th April, 1986 (Annexure 10).
3. In the second writ petition No. 15224 of 1986 the petitioner alleged mala fide as against the A.D.M. (Civil Supply), Aligarh, which has led to the passing of various orders which are impugned in the Writ Petition No. 7009 of 1986. The matter did not rest there. It is alleged he further wrote letter dated 3rd March, 1986, to the Divisional Manager, Bharat Petroleum Corporation Ltd., Bareilly (Annexure 5) for immediate termination of gas agency of the petitioner. As a consequence the Corporation sent letter dated 15th July, 1986 to the petitioner why its gas agency be not terminated. At the time of filing of this second writ petition though the petitioner annexed it as Annexure 7 but alleged that the same had been served on him. It referred to the termination of the agency on expiry of thirty days under cl. 28 of the aforesaid agreement. The petitioner thus sought for a writ of mandamus restraining the respondent Corporation not to cancel its agency and also not to cause any interference in the supply of L.P.G. (Cooking gas) cylinders, and further to quash the said notice dated 15th July, 1986 (Annexure 7). At the time of admission this Court by means of interim order stayed the operation of the order dated 15th July, 1986, passed by the respondent No. 1 Corporation.
4. It seems in spite of the orders passed in the aforesaid two writ petitions the L.P.G. (Cooking gas) cylinders were not supplied to the petitioner and further on 26th July, 1986, passed an order granting ad hoc distributorship STEFCO, Hathras in place of the petitioner which has led to the filing of the third writ petition (Civil Misc. Writ No. 1944 of 1987. Initially, the petitioner was permitted to serve the Corporation personally and order dated 4-2-1987 was passed to the following effect :--
"The petitioner is permitted to serve opposite party No. 3 within three days. Office shall hand over necessary notices to learned counsel for petitioner today indicating therein that the petitioner shall be listed for admission on 23rd February, 1987.
In the meantime, the opposite party may either show cause as to in what circumstances, the gas cylinders are not being supplied to petitioner although this Court has already stayed the earlier orders passed by the District authorities and petitioner has also obtained no objection certificate under Indian Explosive Act which is valid upto 31 st March, 1989, or they may release at least the gas worth Rs. 16,535/- which petitioner has already deposited."
This Court further passed an order on 24-2-1987 to the following effect :--
"No counter affidavit has been filed although opp. party No. 3 has been served on 6th Feb. 1987. In the circumstances, we admit this petition. We further direct opposite parties to hand over possession of petitioners' godown and they may further nor interfere with petitioners' business and release gases as has been done in the past."
According to the petitioner, in spite of the aforesaid order passed by this Court since the respondents did not start supplying gas cylinders it held into filing fourth Writ Petition No. 8013 of 1987 by the petitioner. In this writ petition, a relief was sought for directing the corporation to release the L.P.G. Gas Cylinders to the petitioner firm and further to direct them for compliance of the order dated 24th February, 1987 passed by this Court in the earlier writ petition and restraining the opposite parties Nos. 4 and 5 in distributing the L.P.G. Gas cylinders to the customers of the petitioner-firm. On this writ petition on 27th April, 1987 again a direction was issued to the respondents to supply gas on or before 11-5-1987 and further to show cause why action be not taken against them for disobeying the orders passed by this Court and in case they did not file any counter affidavit then the Chief Judicial Magistrate, Bareilly was directed to issue non-bailable warrants for the arrest of opposite parties Nos. 4 and 5. Thereafter, on 20th May, 1987, this Court passed the following order :--
"List all these petitions in the week commencing 13th July, 1987. It is made clear that on that date all the petitions including the one which has been admitted shall be disposed of on merits. In case any counter affidavit or rejoinder affidavit has not been filed the same may be filed after exchange of affidavit amongst themselves in the meantime.
After hearing learned counsel for parties we do not wish to enter into larger controversy at this state. At the same time we find no justification on part of opposite party No. 3 not to comply with directions issued by this Court for releasing gas worth Rs. 16,535/- for which deposit has already been made by petitioner. Accordingly, we direct o.p. No. 3 to comply with order to the extent of gas worth Rs. 16.535/- which shall be released in favour of petitioner not later than three weeks. Opposite party shall not be entitled to take up plea that empty gas cylinders were not available."
It was in pursuance to this order the opposite parties released the gas cylinders worth Rs. 16,535/- to the petitioner. It is also relevant to mention here that on 2nd April, 1990, the Special Judge (B.C. Act) Aligarh in Crl. Case No. 22 of 1987 acquitted Shyam Lal Maurya, Proprietor of the petitioner, from the charges u/S. 3/7, Essential Commodities Act, but the Manager of the petitioner, Satya Pal Singh, was found guilty for violating cl. 8 of U.P. Essential Commodities (Display of Prices and Stocks and Control of supply and Distribution) Order, 1977. The Manager as against the said conviction and sentence filed Appeal No. 920 of 1990 in this Court and the appeal was admitted and the operation of the order dated 2nd April, 1990, was stayed.
5. The facts leading to the filing of the four writ petitions by the petitioner reveal that the impugned action was initiated on the basis of the FIR dated 28-2-1986 leading to the initiation of prosecution under the Essential Commodities Act and sealing of the godown of the petitioner. Thereafter, a recommendation was sent by the concerned A.D.M. (Civil Supply) on 2/3-3-1986 (Annexure 6 to Writ No. 15224 of 1986) for terminating the agency of the petitioner and giving it to some one else. Thereafter, a letter dated 15th July, 1986 (Annexure 7) the impugned order terminating the agency of the petitioner on the expiry of thirty days from the date of receipt of that letter was sent to the petitioner. It is significant that this letter at the bottom mentions that this is being sent to the petitioner as the original termination notice dated 31st March, 1986, had been returned undelivered. It reveals after receipt of letter dated 2nd March, 1986 of the A.D.M. concerned, as aforesaid on 31st March this letter for termination was issued. Thus, the main question which crops up for consideration is the order of termination dated 15th July, 1987, in exercise of powers under cl. 28 of the aforesaid agreement, whether the order is sustainable on the facts and circumstances of this case or is illegal. The decision on this point would dispose of the other reliefs sought for by the petitioner in various writ petitions.
6. Among all these writ petitions, the State has filed counter affidavit only in writ petition No. 7009 of 1986, while the Corporation has filed counter affidavit in writ petition No. 15224 of 1986 and in writ petition No. 8013 of 1987 one counter affidavit and a supplementary counter affidavit has been filed, while no counter affidavit has been filed either in Writ No. 7009 of 1986 or No. 1944 of 1987.
7. At the outset learned counsel for the Corporation raised three preliminary objections as against the maintainability of these writ petitions: (1) Since the petitioner has filed Suit No 287 of 1986 in the Court of the Civil Judge, Aligarh and he having availed the remedy is precluded from seeking any redress from this Court under Art. 226 of the Constitution of India; (2) In view of cl. 37(a) of the agreement entered into between the petitioner and the Corporation (Annexure 1 to W.P. 15224 of 1986) contains an arbitration clause providing redress through arbitration thus he is precluded from seeking any relief from this Court; and (3) since relief both in Writ Petition No. 15224 of 1986 and Writ No. 1944 of 1987 are identical the later writ petition is not maintainable for the same relief.
8. Before dealing with the main contention we would like to dispose of the preliminary objections of the petitioner first. The petitioner has stated in para 40 of the writ petition (W.P. 15224) that he had withdrawn the said suit and also annexed the order passed by the court in that suit. The Court permitted the withdrawal of the suit on 11th September, 1986. For the Corporation reliance was placed in Sultanat Rai v. The District Inspector of Schools, Amagarh and others (1983 UPLBEC 506), in which, it was held :--
".....Simultaneous reliefs in two forums cannot be availed of. On the date, the petition was filed, the suit was pending in the Civil Court. The petitioners, cannot, therefore, pursue this writ petition merely because they have withdrawn the suit."
In this case, the petitioners filed a suit for declaration that the orders terminating their services were illegal and the Munsif issued interim injunction in their favour. On appeal, the appellate authority set aside the said injunction. The petitioner then filed a Civil Revision. However, in view of a Full Bench decision of this Court revision was not maintainable, the petitioner thereupon filed the writ petition. It seems during the pendency of the writ petition the petitioner withdrew the suit. It is in that context the said judgment was given.
9. The principle as referred to in that judgment cannot be in doubt. However, the facts here are different. Here, Writ Petition No. 7009 of 1986 was filed on 18th June, 1986 and the Writ Petition No. 15224 of 1986 was filed on 29th August, 1986, and the last two in 1987. The exact date of filing suit is not ascertainable from the records but the suit was withdrawn on 11th September, 1986. The last two were admittedly filed in the year 1987 i.e. after withdrawal of suit. Today, main relief is sought in WP 15224 which was filed shortly before withdrawal of the suit. But main consideration on which we reject this preliminary objection is that now after writ petition being pending in this Court for more than four years, it is not desirable to throw the petitioner on the ground of alternative remedy or on the ground that they have filed a suit and later withdrew it in 1986. It is true when effective alternative remedy is available to a party this Court could always decline to exercise a discretion under Art. 226, but where the writ petition has been admitted and is pending for the last several years and party being heard on various occasions for the purpose of even interim matters it would not be right for the court to unseat the petitioner on the ground of alternative remedy. It is not in dispute, the suit stands withdrawn as early as 11th September, 1986, almost the same time or a little later than the filing of the writ petition and all further proceedings and various interim orders were passed subsequent to the said withdrawal of the suit.
10. Coming to the second preliminary objection about the arbitration clause the learned counsel for the Corporation relied on the case Smt. Rukmanibai Gupta v. Collector, Jabalpur (AIR 1981 SC 479) wherein it was held (at page SC 482; AIR 1981) :--
"......Thus, Arbitration Act, 1940, is a self-contained exhaustive code. Relief sought by the appellant by investing extraordinary jurisdiction of the High Court under Art. 226 could have been obtained by proceeding in accordance with the relevant provisions of the Arbitration Act....... The contract provided for resolution of disputes arising out of the carrying out of contract. The writ jurisdiction of the High Court under Art. 226 of the Constitution is not intended to facilitate avoidance of obligation voluntarily incurred."
This was a case in which mining lease relating to excavation of minor mineral itself provides for reference of any dispute to arbitration and an award was passed in terms thereof by the arbitrator and thereafter it was sought to be challenged in a writ proceeding. It is in this context the aforesaid findings were recorded. It is no doubt well settled, the Arbitration Act is a self-contained exhaustive code and it provides for all the procedure right from the stage of filing of the arbitration agreement to the stage of setting aside of an award u/ S. 33 of the said Act. Here the question is not of any award which is sought to be challenged in the writ proceeding but question whether this Court should decline to exercise its discretion in these proceedings when the petitioners have an alternative remedy by way of preferring the dispute before the Arbitrator in view of cl. 37(a) of the agreement. Even this principle cannot be doubted that normally when there is a provision for arbitration between the parties in terms of contract then a party must go to that form for getting relief in respect of any dispute arising out of a contract except in cases where no effective relief could be obtained in those proceedings. However, this will depend on the facts of each case and if it can be shown that there is some exceptional circumstance then even though an alternative remedy by way of arbitration may exist this Court can exercise its discretion under Art. 226 of the Constitution of India. In a case where a disputed question of fact is to be agitated a writ petition would not be a proper remedy. In the present case, we feel, the second preliminary objection is not sustain-able on two grounds : Firstly, the petitioner has challenged cl. 28 of the agreement to be void being against public policy and where a party challenges the validity of any part of the agreement itself the authority created under the said agreement will not be competent to adjudicate the same, and, secondly, on the parity of the reasoning as we have said in respect of the suit once this writ petition has been admitted and the matter being pending for the last four years it would not be right and proper for this Court to decline to exercise the discretion under Art. 226 of the Constitution and to send the petitioner back to the arbitrator especially where the only and the main question involved in these writ petitions is whether termination of contract of gas agency by the Corporation was valid or not.
11. The third preliminary objection in our considered opinion is also not sustainable as we find the petitioner filed Writ Petition No. 1944 of 1987 when it felt earlier orders of this Court in the first two writ petitions were not being complied with On the contrary, the distribution of gas cylinders which the petitioner was to do was being given to another party, viz. U.P. State Food and Essential Commodities Corporation (STEFCO Gas Service) (hereinafter referred to as the STEFCO), Hathras. In fact, that order was sought to be quashed in WP No. 1944 of 1987. Thus, it cannot be said that this writ petition is identical with the earlier Writ Petition No. 15224 of 1986. For the said reasons, all the three preliminary objections of the Corporation are not sustainable.
11A. The petitioner's case is that termination of agency of the petitioner though purported to have been made under para 28 of the agreement but, in fact, was made mala fide on the basis of recommendation of the A.D.M. (Civil Supply) and in terminating it, the respondent corporation acted unfairly without giving any opportunity to the petitioner. The petitioner further contends cl. 28 of the agreement is void as it is against public policy and this clause of the agreement is unconscionable. Thus, action under it is void. In the alternative, facts on the record clearly reveal, the respondent Corporation and the State Government acted unfairly, unreasonably and arbitrarily and in any case on this score also the termination of agency is liable to be set aside. On the other hand, the respondent-Corporation states that it merely passed an order under Cl. 28 in accordance with the terms of contract and the said clause is not void. For appreciating the controversy certain essential facts are necessary which are being reproduced here.
12. On 28th February, 1986, a FIR against the petitioner u/S. 3/7, Essential Commodities Act, in Crime Cas No. 45 at Police Station Hathras Gate, Hathras, District Aligarh, was lodged both against the proprietor Shyam Lal Maurya as well as against Manager of the petitioner firm S. P. Singh. On the same day, petitioner's godown was also sealed. After the sealing of godown the A.D.M. (Civil Supply) wrote a letter on 3rd March, 1986, to the Corporation for terminating the petitioner's gas agency. Further, as per para 7 of the counter affidavit in Writ Petition No. 8013 of 1987) the Corporation recived tetter dated 14th March, 1986 from the District Magistrate, Aligarh accompanied with a copy of the first information report from which the Corporation came to know about criminal proceedings initiated against the petitioner. Thereafter, on the 7th March, 1986, the A.D.M. (Civil Supply) directed the Hathras Gas Agency to undertake the distribution of gas cylinders of the petitioner, which was seized. This order was amended on 24th March for distribution through U.P. State Food and Essential Commodities Corporation. The petitioner further alleged, in the midnight of 24/25th March, 1986, Tahsildar Hathras along with a number of persons broke open the lock of the godown of the petitioner-firm without informing the petitioner and in spite of the resistence by the watchman of the petitioner. Intimation regarding this was sent by the watchman through telegram to the higher authorities including the Chief Minister, U.P. and the Petroleum Minister, Government of India. On 29th March, 1986, notice was issued u/S. 3(1) of U.P. Accommodation Requisition Act, 1947 for requisitioning the sealed godown of the petitioner and, then xx, on 24th April, 1986, final order requisitioning the said godown was passed. Finally, through letter dated 15th July, 1986, the agency of the petitioner was terminated. This letter reveals that the earlier original termination notice was sent to the petitioner on 31st March, 1986, which since returned undelivered was sent again on the 15th July, 1986. All these actions of the A.D.M. (Civil Suply) according to the petitioner was mala fide and was being taken on account of his annoyance as the petitioner did not effect free delivery and supply of gas cylinders to him and thus out of personal vendetta and annoyance passed the aforesaid several orders to dislodge the petitioner from its gas agency. Further, the termination of agency of the petitioner was on account of complaint and letter dated 3rd March, 1986, of the A.D.M. (Civil Supply) as aforesaid on account of the proceedings initiated by him under Essential Commodities Act and not an innocuous termination order under Cl. 28 of the agreement. The sequence of events according to the petitioner makes it clear that the action against the petitioner was not bona fide but was, in fact, mala fide and unsustainable in the eyes of law. In all these writ petitions except in Writ Petition No. 7009 of 1986 where a supplementary counter affidavit in reply to the supplementary affidavit has been filed on behalf of the State but no counter affidavit in spite of repeated times in other writ petitions has been filed by it. The state has denied the allegations of mala fide and has stated that the orders were passed in accordance with law and further stated that the A.D.M. (Civil Supply) was duty bound to send recommendations to the Corporation for cancellation of the distributorship of the petitioner as he was working against the provisions of the aforesaid Control Order of 1977. The Corporation in the counter affidavit filed (WP 15224/86) has taken a stand, as per agreed terms of the contract there was no question of giving any show cause notice to the petitioner before terminating the agency. However, the petitioner was earlier given opportunity to explain in respect of irregularities leading to the termination of his distributorship. Corporation further alleged the principle of natural justice cannot be applied in the realm of contractual obligation where party is governed by the terms of contract. It is alleged that the petitioner started overcharging for the refills for which the petitioner was warned on 8th November, 1983, and, in fact, he was further warned on the 11th August, 1984. Similarly, there was warning also issued on 4th March, 1985. Thereafter, audit was carried by the Divisional Manager, Bareilly and a registered warning was sent to the petitioner on 15th April, 1985. These complaints and some other have been referred in various sub-paras of para 7 of the counter affidavit. The petitioner denied each one of them in the rejoinder affidavit. According to him, most of these complaints were engineered by one Sri S. P. Bansal, one of the competitors of the petitioner. The petitioner did inadvertently calculate wrong rate of the Sales Tax on each cylinder which was collected by him, but later the same was deposited with the Sales Tax Department and the petitioner was issued receipt of the same. No irregularity was found in the audit and since only cylinder caps were found missing warning dated 18th April, 1987, was issued in this regard. Further, he sent all the moneys within time and only there was slight delay in sending monthly returns. Further, he annexed order of the S.D.M. that a direction was issued by him not to make home delivery and to make distribution from the godown itself and on this count no wrong could be attributed to the petitioner. Further, allegations made in para 7 (d) of the counter affidavit was investigated by the Senior Sales Officer and the Deputy Divisional Manager Sri V. P. Arora and it was found that the complaints were not genuine. Further, the Divisional Manager, Bareilly himself sent a detailed comments on 5th June, 1985 holding that the complaint was false. The petitioner further stated that the cylinders found under-weight as alleged in para 7(e) was not on account of petitioner's fault as when the raid was made by the Delhi Administration at Bharat Petroleum Limited L.P.G. bottling plant at Shakur Basti, seven out of twenty cylinders were found to be underweight by 150 gm. to one kg. Further, if anything wrong in addition was found by the audit party nothing was intimated to the petitioner in that regard.
13. The Corporation further stated in para 10 of counter affidavit (WP 8013 of 1987) that in the circumstances of the case, in the absence of any godown, there could not arise any question of supplying cooking gas cylinders to the petitioner. He had no storage licence for the godown, which had expired on 31st March, 1985 to which petitioner has denied. In the light of these the distributorship of the petitioner was terminated and a letter was issued in this connection on 31st March, 1986.
14. It is in the background of these facts it was contended by the petitioner, on the one hand, that termination of his agency without any opportunity placed the petitioner in an unfair position and series of events conclusively prove that the termination of the agency was made on account of the initiation of Criminal proceedings by the A.D.M. (Civil Supply) and on his recommendation.
15. On the other hand, the Corporation contended that the termination of agency was simpliciter under the contract in exercise of power under clause 28 of the aforesaid agreement and in the matter of contractual obligations in terms of agreement no question of granting any opportunity arises.
16. The first question which calls for consideration is whether cl. 28 of the agreement which is reproduced hereunder is void being against public policy and is unconscionable :--
"28. Without prejudice to the foregoing provision or any thing to the contrary herein contained, either of the parties hereto, namely, the Corporation or the Distributor, shall be entitled to terminate this agreement on giving thirty days notice to the other party without assigning any reason for such termination."
17. It is not in dispute that the respondent Corporation, viz., Bharat Petroleum Corporation Ltd. is instrumentality of the State and is, therefore, "State" within the meaning of Art. 12 of the Constitution of India.
18. In Central Inland Water Transport Corporation Limited v. Brojo Nath Ganguly ((1986) 3 SCC p. 156) : (AIR 1986 SC 1571) : (AIR 1986 SC 1571) it was held :--
"Term in contract of employment as also service rule of the company providing for termination of services of permanent employees without assigning reasons on three months' notice or pay in lieu thereof on either side was unconscionable, arbitrary and opposed to public policy."
It was further held :--
"The test of reasonableness or fairness of a clause in a contract where there is inequality of bargaining power is another theory recognised in the sphere of law of contracts. The courts will not enforce and will, when called upon to do so, strike down an unfair and unreasonable contract, or a clause in a contract, entered into between parties who are not equal in bargaining power. This principle, however, will not apply where the bargaining power of the contracting parties is equal or almost equal. This principle may not apply where both parties are businessmen and the, contract is a commercial transaction."
It is this later part of the judgment the Corporation relied on to repel the petitioner's argument that the principle of void of a (Sic) clause of an agreement cannot be applied in a business transaction. This principle was laid down only in the matter of service only where relationship of master and servant is involved. Further, once the State enters into the realm of contract it is in exercise of its executive power and after entering into the contract the party would be exclusively governed by the terms of contract and the principles of Art. 14, fairness etc. would not arise and the court can only enforce the rights between parties through the rights flowing out of the contract and enforce as against the parties whose obligations also flow from the said contract.
19. Further, it was contended selection of dealership is discretionary and there is no subsisting right enforceable and there is no question of breach of any principle of natural justice. For this later part of the argument reliance was placed in v. U. S. Samiti Ltd. v. Divisional Manager, I.O.C. Ltd. (AIR 1986 All 211). It was held in this case that the grant of licence was a discretionary matter and at best a privilege and there is no question of any enforceable right granted in favour of one claiming to be selected. This case merely rejected petitioner's challenge to the selection of someone else in preference to him. Since the petitioner claimed to be belonging to the place where dealership was given as per condition enumerated in the notice preference was to be given to the persons of that place. The principle of this case has no application to the facts of the present case.
20. The Corporation relied next on the case Premji Bhai v. Delhi Development Authority (AIR 1980 SC p. 738) :--
".....But after the State or its agents have entered into the field of ordinary contract, the relations are no longer governed by, the constitutional provisions but by the legally valid contract which determines rights and obligations of the parties inter se. No question arises of violation of Art. 14,......In this sphere, they can only claim rights conferred upon them by contract and are bound by the terms of the contract only unless some statute steps in and confers some special statutory power or obligation on the State in the contractual field which is apart from contract."
In this Delhi Development Authority constructed certain flats under M.I.G. scheme and determined price of the flats which was subject matter of challenge and it is in this context it was held that the authority acts purely in any executive capacity in fixing the price and this matter is governed by the legally valid contract and not by any constitutional provision. In this case, when the flats were offered to the petitioner price in round figures of each flat was mentioned and surchage was not separately set out and this price has been accepted by the petitioner, but it was held that the authority was under no obligation to fix price of different flats in different schemes in the same income group at the same level and if different prices are fixed it cannot be said to be discretionary treatment. It will only be discriminatory if persons in the same scheme were offered different prices. Thus, even in this case, the Supreme Court applied the principle of Art. 14 even in the matter of allotment of flats, but distinguished it to a class of cases where similar flats were made for the same group of persons in some other scheme to be of a different class by itself.
21. Next, reliance was placed on the case M/ s. Radhakrishna Agarwal v. State of Bihar (AIR 1977 SC p. 1496), in which it was held :--
"At the very threshold or at the time of entry into the field of consideration of persons with whom the Government could contract at all the state, no doubt, acts purely in its executive capacity and is bound by the obligations which dealings of the State with the individual citizens import into every trans-
action entered into in exercise of its constitutional powers. But, after the state or its agents have entered info the field of ordinary contract the relations are no longer governed by the constitutional provisions but by the legally valid contract which determines rights and obligations of the parties inter, se. No question arises of violation of Art. 14 or of any other constitutional provision when the State or its agents, purporting to act within this field, perform any act. In this sphere, they can only claim rights conferred upon them by contract and are bound by the terms of the contract only unless some statute steps in and confers some special statutory power or obligation on the State in the contractual field which is apart from contract."
This decision has been referred in Central Inland Water's case (supra).
22. Reliance was also placed in the case E. Venkatakrishna v. Indian Oil Coprn. Ltd. Bombay (AIR 1989 Karnataka 35), in which 'it was held (at page Kant 41; AIR 1989):--
".......But there is no comparison between the conditions of service incorporated in a service rule which is made part of the contract of service and an agreement entered into by an individual businessman with the Government or the instrumentality of the Government in connection with the business transaction. In fact that distinction has been highlighted by the Supreme Court in the case of Brojo Nath itself (supra)".
23. This distinction between the cases falling under the conditions of service incorporated in the service rule and other class of contract in connection with the business transaction has also been referred in the Central Inland Water's case (supra) to which we would like to refer later in our judgment. This E. Venkatakrishna's case (supra) is a case of entering into contract similar to one in the present case, but there consideration was not of clause 28 but of clause 27, which stipulated that the Corporation would be entitled to terminate the contract without giving any reasons if the General Manager of the Corporation is satisfied that the dealer, its servants or agents have committed any of the act which is prejudicial to the interest or good name of the Corporation. In this context, it was held that this clause does not confer any arbitrary power on Corporation to terminate the contract. It further held :--
"......The fact that the Corporation was not obliged to give reasons for termination of distributorship did not mean that the agreement could be terminated without any reason. On the contrary it could be done only if two conditions in the clause were fulfilled......"
Under this clause power could be exercised only when the distributor commits an act which in the opinion of the General Manager of the Corporation is prejudicial to the interest of good name of the Corporation. Thus, there is guideline to check the arbitrariness of the authority exercising the power and this clause cannot be put in parity with Cl. 28, which is in issue in the present case.
24. On the other hand, the petitioner relied on the case M/s Dwarkadas Marfatia and sons, v. Board of Trustees of the Port of Bombay (AIR 1989 SC 1642) wherein it was held (at page SC 1648; AIR 1989) :--
"Where there is arbitrariness in State action Art. 14 springs in and judicial review strikes such an action down. Every action of the executive authority must be subject to rule of law and must be informed by reason. So whatever be the activity of the public authority, it should meet the test of Art. 14......
All exercise of discretion or power by public authorities as the respondent, in respect of dealing with tenants in respect of which they have been treated separately and distinctily from other landlords on the assumption that they would not act as private landlords must be judged by that standard. If a government policy or action even in contractual matters fails to satisfy the test of reasonableness, it would be unconstitutional."
In this case, it was asserted that every action of the respondent which is State within the meaning of Art. 12 of the Constitution whether it be in the field of contract or any of the field, which is subject to Art. 14 of the Constitution must be reasonable and taken only upon lawful and relevant grounds of public interest. In that light, it was urged that if the eviction of the appellant was not necessary in the public interest and if it had been taken pursuant to any norm or policy which does not permit eviction of the appellant, then the action is arbitrary and discriminatory. It was held :--
"Being a public body even in respect of its dealing with its tenant, it must act in public interest, and an infraction of that duty is amenable to examination either in civil suit or in writ jurisdiction."
25. In Management of M/s M. S. Nallybharat Engineering Co. Ltd. v. State of Bihar (1990) 2 SCC p. 48), it was held :-
"It is fundamental principle of good administration showing that justice is not only done but seems to have been done. It should be observed even where principles of natural justice not applicable what would amount to fairness would depend on particular facts and circumstances. Affording opportunity of pre-decisional hearing, held in the particular situation, in consonance with fairness particular prejudice as a result of want of the opportunity need not be established -- Not giving the opportunity is itself a prejudice."
"In the modern administration set up what is important is the fairness of procedure with elimination of element of arbitrariness. The State functionaries must act fairly and reasonably. That is, however, not the same thing to state that they must act judicially or quasi-judicially. The terms 'fairness of procedure' 'fair play in action', 'duty to act fairly' are perhaps used as alternatives to 'natural justice'......"
No doubt this was a case u/S. 33-B of the Industrial Disputes Act, 1947 in respect of an employee's service being terminated after domestic inquiry.
26. In Mahabir Auto Stores v. Indian Oil Corporation (AIR 1990 SAC 1031) it was held :--
"......In case any right conferred on the citizens which is sought to be interfered such action is subject to Art. 14 of the Constitution, and must be reasonable and can be taken only upon lawful and relevant founds of public interest. Where there is arbitrariness in State action or this type of entering or not entering into contracts. Art. 14 springs up and judicial review strikes such an action down. Every action of the State executive authority must be subject to rule of law and must be informed by reason. So, whatever be the activity of the public authority in such monopoly or semi-monopoly dealings, it should meet the test of Art. 14 of the Constitution. If a Governmental action even in the matters of entering or not entering into contracts, fails to satisfy the test of reasonableness, the same, would be unreasonable........ Even though the rights of the citizens are in the nature of contractual rights, the manner, the method and motive of a decision of entering or not entering into a contract, are subject to judicial review on the touchstone of relevance and reasonableness, fair play, natural justice, equality and non-discrimination in the type of the transactions and nature of the dealing as in the present case."
This again is a case of Indian Oil Corporation where the Corporation without informing the parties concerned on the basis of alleged change of policy, action was taken to seek to bring to an end the course of transaction of over 18 years involving large amounts of money. This action of the Corporation was held to be not a fair action specially in view of the monopolistic nature of the power of the Corporation.
27. The ratio of the aforesaid decision brings forth two clear enunciations of law; firstly, any contract entered into by the State or instrumentality of the State containing some unconscionable clauses of the contract which are unfair, unreasonable and opposed to public policy are void with the exception where the bargaining power of the contracting party is equal or almost equal, where both parties are businessmen and the contract is a commercial transaction; secondly, the State in dealing with its citizens even in cases where the rights of the citizens are in the nature of contractual rights the manner, 'the method and motive of a decision of entering or not entering into a contract asre subject to judicial review on. the touchstone of relevance and reasonableness, fair paly, natural justice, equality and non-discrimination in the type of the transactions and nature of the dealing.
28. In the present case, under cl. 28 of the agreement the Corporation was entitled to terminate the agreement of the agency by giving thirty days notice without assigning any reasons. The question to be examined is whether such a clause could be held to be void in terms of the law laid down by the various authorities as aforesaid.
29. The principle on which the Supreme Court declared void rule 9(i) of the service rule in Central Inland Water's case (supra) was that in consonance with right and reason, intended to secure social and economic justice and conforms to the mandate of the great equality clause in Art. 14 an unfair and unreasonable contract or a clause in a contract would be opposed to public policy if entered into between parties who are not equal in bargaining power. This disparity in bargaining power has not been elaborated but has to be examined on the facts of each case. It may be in a case where there is a great disparity in the economic strength between the contracting parties, or where a weaker party is not in a position to bargain with any clause of a contract in order to obtain goods or services or means of his livelihood. It will also apply where a man has no choice but to sign and assent to the contract on a prescribed standard form howsoever unfair, unreasonable and unconscionable a clause in the contract may be in order to obtain his livelihood. But this has to be applied with great circumspection.
30. This principle of striking down the contract or any clause of the contract is inapplicable to every other class of persons where the bargaining power of the contracting parties is equal or almost equal and also where both the parties are businessmen and the transaction is a commercial transaction. It is in this context it has to be seen whether the aforesaid clause of the contract entered into between the Indian Oil Corporation and the petitioner is a contract between two equals or almost equals or is a transaction between two businessmen or it is a commercial transaction.
31. We feel on the basis of principle, which is churned out from all the aforesaid decisions a contract or clause in a contract, if the conditions stipulated as aforesaid exists inter se between the parties may be declared void, if it is unconscionable or against the public policy not only in cases of master and servant but in other class of cases but would not apply if a contract is between equals or almost equals or in a business or commercial transaction.
32. Applying this principle to the facts of the present case we find that the petitioner obtained the distributorship of L.P.G. cooking gas agency from M/s. Bharat Petroleum Corporation Ltd. under scheduled caste quota. This is not denied by the respondent Corporation in the counter affidavit. It cannot be doubted that the petitioner obtained this distributorship contract from the Corporation either being equal, almost equal or being in the dominant bargaining position. On the contrary, in order to obtain this distributorship he had no option but to accept all the conditions in the contract as it being his source of livelihood, or in other words he was not in a position by any stretch of imagination to enforce the Corporation to eliminate clause 28 of the agreement from the contract. Petitioner was being given this distributorship under the Scheduled caste quota. This reservation of quota principally was to ensure giving it to the economically backward in order he may carry on his livelihood for his subsistence and his family. This cannot be termed either as a commercial or business transaction or a transaction between two equals where rights and obligations are negotiable as between two independent contracting parties. Here, it cannot be said, he had entered into a contract with full open mind and once after entering into contract he cannot wriggle out of the same by seeking the court's intervention of not enforcing that part of the contract. Every contract creates both right and obligation of parties and parties are governed by the same howsoever onerous it may be. The aforesaid conclusion would not mean derogating the principles of contract for the purpose of enforcibility of the rights of the parties flowing through it. The above exception has been carved out to salvage exceptionally placed downtrodden, economically distressed, invalids, socially weak not being able to enforce their existing rights, finding no avenue of their livelihood etc. the details of which cannot be exhaustively enumerated, against State's arbitrary action by placing a clause against public policy in terms of a contract. We further want to make it absolutely clear that in applying this principle Court should examine each case on its facts with precision as to avoid its application is generality to obliterate or dilute the contract.
33. This principle in no way dilutes any rights and obligation flowing from contract. Every contract under the Contract Act is binding on the party unless it is void and voidable under it. In the Central Inland Water's case (supra) the Supreme Court held, where the bargaining is unconsionable then such a contract or clause of a contract would be void and what is unconscionable is that opposed to public policy. Applying this principle to the present case we find that the petitioner is a scheduled caste being granted this distributorship under Scheduled caste quota. He has further averred this to be the only source of livelihood. In order to earn his livelihood he was not in a bargaining position to negotiate either to delete cl. 28 or to decline this offer in view of this clause. This clause thus so far it is applicable to the petitioner would be opposed to public policy and would be unconscionable. Thus, we come to the irresistible conclusion that cl. 28 of the agreement between the petitioner and the Corporation dated 29th March, 1983, is void.
34. In the alternative, even if it can be said that the said clause is not void it has to be seen whether the Corporation has acted fairly and reasonably and if it is found that under the garb of this clause it has acted unfairly, unreasonably by taking into consideration some adverse facts to the petitioner, which were with the Corporation by drawing adverse inference as against the petitioner for terminating his agency without confronting the same or giving opportunity to the petitioner then such an action would be illegal and liable to be set aside.
35. In the present case, the aforesaid detailed facts reveal that during 1984-85 there seems to be some complaint against the petitioner for which inquiries were held, in some warnings were given to him and in another he was exonerated, but none of those complaints resulted into exercise of power by the Corporation under Cl. 28 for termination of his agency. The facts immediately preceding the termination of his agency are very relevant which dislose that everything started with the filing of the FIR dated 28th Feb. 1986, with sealing of the godown, communication by the A.D.M./D.M. to the Corporation for terminating petitioner's agency along with the making of alternative arrangement of the dealership with some one else. In fact, during the pendency of these proceedings in close proximity on the 29th March, 1986, notice for acquisition of petitioner's godown was issued and finally it was requisitioned on 24th April, 1986. It is this communication by the A.D.M. (Civil Supply) which triggered the Corporation for exercising power under Cl. 28 of the said agreement by terminating the agency of the petition. In the context even act of requisitioning the godown of the petitioner, which was sealed, gives colour to the happening at that time. However, it is on the record, subsequently the respondent authorities withdrew that requisition. On these facts we irresistibly come to the conclusion that the action of the Corporation was not plain and simple of exercising power under Cl. 28 but was on account of the initiation of the proceedings by the A.D.M. (Civil Supply) by lodging the FIR initiating proceedings u/S. 3/7, Essential Commodities Act. If the Corporation desired to terminate this agency on the basis of earlier complaints referred to in the counter affidavit it could have exercised that then. But we find Corporation itself, after inquiry, either exonerated the petitioner or issued warningto him. There seems to be gap between these earlier complaints and initiation of proceedings under Essential Commodities Act and the termination of the agency of the petitioner being in the immediate vicinity of proceedings under Essential Commodities Act we come to the inevitable conclusion that it was made on account of these later proceedings. It is not in dispute, in this case, after initiation of the said proceedings and before terminating the agency of the petitioner the Corporation did not confront the petitioner with the charges levelled in the FIR or the Corporation ever gave any opportunity to the petitioner to explain the allegations made as against him in the FIR. By merely filing the FIR or initiation of proceedings on the basis of FIR a contract of agency between the petitioner and the Corporation cannot be terminated unless the Corporation itself comes to the conclusion that the petitioner had committed wrong. And before coming to this conclusion fairness demands that it was incumbent on the Corporation to have at least given an opportunity to the petitioner to explain it before terminating the agency. In fact, the petitioner has shown even though serious accusations were sought to be made in the FIR by the respondent-State authority, but in the proceedings u/S. 3/7, Essential Commodities Act, the proprietor of the petitioner firm has been acquitted and only the Manager was convicted and that too confining to the violation of Cl. 8 of the aforesaid Control Order, that he did not specify the price and the details in the notice board as required under the said order. Even this conviction and sentence under cl. 8 of the aforesaid Order is subject matter of appeal pending in this Court in which order of sentence has been stated.
36. If the Corporation wanted to exercise the power under Cl. 28, fairness required that the Corporation placed all these before terminating the agency of the petitioner. In the present case, it is not in dispute, rather in the counter affidavit, it has been clearly conceded and stated that no opportunity was necessary in terminating the agency of the petitioner under Cl. 28 of the agreement. The only contention raised on behalf of the Corporation was that opportunity was given to him earlier when complaints were made against him..This opportunity as alleged is not in dispute. The question is whether when subsequently the Corporation came to the conclusion of terminating the agency influenced by the lodging of the FIR as aforesaid whether Corporation confronted those materials to the petitioner or not. Admittedly, this was not done then even if Cl. 28 could be valid, the Corporation was duty bound in fairness to have given an opportunity to the petitioner.
37. The State must act fairly and reasonably does not only flow from Art. 14 of the Constitution. A State is always expected to act fairly to its subjects for which no law is necessary. Art. 14 merely enshrines this principle. Even in the matter of entering into contract under Art. 229, right flowing from Art. 298 for carrying on trade etc. the state is always expected to act fairly and reasonably. The act of fairness by the State is always expected right from the stage of initiating of the contract, entering into the contract, performance of the terms of the contract of enforcement of the contract.
38. In Mahabir Auto Stores v. Indian Oil Corporation (AIR 1990 SC 1031) the Supreme Court has held (at page SC 1037; AIR 1990) :--
".......Even though the rights of the citizens are in the nature of contractual rights, the manner, the method and motive of a decision of entering or not entering into a contract are subject to judicial review on the touchstone of relevance and reasonableness, fair play, natural justice, equality and non-discrimination......"
39. In fact, a social structure of a society is always strong with sound economy fairness in every conduct, behaviour, motive of action is inherent in every citizen and the State. It is this lack of fairness in the citizen brings forth the police power of the State to enforce law through obligations of the State to restrict such individuals from bringing disarray to the social order. Laws are laid down to keep check on such violations. In the modern time what was unthinkable in the ancient time that a king or Ruler would do any wrong to its subjects, the State its substitute cannot be equated on the same pedastal. It is when State not acting fairly, transgressing its power and obligations affecting citizens right they are controlled by courts through the constitutional provisions. This again is only for checking unfairness, unreasonableness of the State. Thus, State even performing contractual obligations under terms of contract, without obliterating it even while literally following terms of contract cannot be expected to act unfairly or unreasonably. The terms of the contract is for an object to be achieved and if in performing the contract the State acts unfairly, unreasonably, though it enforces the contract in literal words, then the Court can always examine each act of the State Government to test whether it is exercising that power for enforcement of that contract or for some ulterior purpose or unfairly against public policy unreasonably. If the Court comes to the conclusion on the facts of each case by removing the veil of State purporting to exercise powers under the contract but acting unfairly or arbitrarily, the Courts should always strike down such an action.
40. In the present case, in this context we are testing the action of the Corporation in terminating the agency of the petitioner. On the facts of this case we have come to the conclusion, the Corporation purporting to exercise power under Cl. 28 having not confronted the petitioner the adverse materials relied before terminating petitioners distributorship the Corporation acted unfairly and such of its act cannot be sustained. Even if Cl. 28 is held to be valid the Corporation cannot act unfairly or arbitrarily. If the Corporation wanted to terminate petitioner's agency on account of either complaints made against him or on account of initiation of proceedings u/S. 3/7, Essential Commodities Act or on account of serious charges levelled in the FIR then it was incumbent on the Corporation to have confronted them to the' petitioner to explain before exercising power under Cl. 28. There might exist materials in a given case where even exercise of powers under Cl. 28 without giving any reason be held to be valid but not in a case where adverse material existed on the record and that having influenced the mind of the authority exercising that power as we have found in the present case.
41. Apart from this in the present case, most of the charges levelled in the FIR incidents mentioned in the complaints as referred in the counter affidavit are all covered under Cl. 27 of the agreement. This fact is also very significant. It was open for the Corporation to have taken action under Cl. 27 if they so desired, but in spite of this it has chosen to exercise power under Cl. 28 itself is dubious in its character as to camouflage the possibile right of the petitioner to be heard. We are, therefore, of the opinion even on this score that the Corporation have not acted fairly in passing the order of termination dated 15th July, 1987, and thus it suffers from illegality and is liable to be quashed.
42. In view of the findings recorded by us above the order of termination of the agency of the petitioner dated 15th July, 1986 (Annexure-7 to the W.P. 15224) is hereby quashed.
43. So far prayers in Writ Petition No. 7009 of 1986 are concerned, the proceeding u/S. 3/7, Essential Commodities Act, having concluded and appeal only by the Manager of the petitioner firm is pending, question of quashing FIR does not arise. Similarly, quashing of orders dated 7th March, 1986 and 24th March, 1986 (An-nexures 5 and 6) wherein alternative interim arrangement was made, there it has not been brought to the notice whether the Same arrangement continues even now. With the lapse of time this relief has become infructuous. So far as notice dated 29th March, 1986, and requisitioning of the accommodation by order dated 24th April, 1986, are concerned, they have also become infructuous as the State Government itself has withdrawn the notice of requisition of the godown concerned. Hence, this writ petition has become infructuous and dismissed as such.
44. So far as the prayer in Writ Petition No. 15224 of 1986 is concerned, we quash the termination order dated 15th July, 1986, and this petition is allowed with costs.
45. So far as relief in Writ Petition No. 1944 of 1987 is concerned reliefs for a mandamus against A.D.M. (Civil Supply) for permitting the petitioner to continue his business is not necessary in the context of the facts which has developed and the reliefs which are being granted in these cases. The second relief for giving possession of the godown to the petitioner, since the godown has already been delivered to the petitioner, has become infructuous. So far directing the Corporation for continuing supply of L.P.G. gas is concerned since we have quashed the termination of agency now the petitioner may approach the respondent Corporation for the same. Similarly, as we have held above, we quashed the order dated 24th March, 1986, passed by the Corporation granting ad hoc distributorship of L.P.G. cooking gas to STEFCO Hathras if it is subsisting even now. Thus, this writ petition is partly allowed. Finally, relief in Writ Petition No. 8013 of 1987 regarding enforcement of the order passed by this Court earlier is not necessary now in view of our finding that the termination of agency of the petitioner is quashed. On account of quashing of this termination of the agency the party would be governed by the rights flowing as it existed on the date on which the agency was terminated. Accordingly, this position is disposed of in terms of decision in the earlier Writ Petition.
46. In the result, Writ Petition No. 15224 of 1986 is allowed with costs; Writ Petition No. 1944 of 1987 is partly allowed and writ petition No. 7009 of 1986 is dismissed as having become infructuous. Writ Petition No. 8013 of 1987 is disposed of with the observation that in view of orders passed in earlier with petitions no further order is necessary to be passed in this.
47. Order accordingly.