JUDGMENT M. Katju, J.
1. This writ petition has been filed praying for a writ of mandamus directing the respondents to absorb the services of the employees of the U.P. State Mineral Development Corporation Limited on suitable posts in the Corporation. It has also been prayed that a writ of mandamus be issued to the State of U.P. to prepare a list of the retrenched employees of the various Corporations and absorb them and also pay compensation.
2. We have heard Sri S.K. Kalia, learned Counsel for the petitioner and the learned Addl. Advocate General for the respondents.
3. The petitioner is a Union of employees of the U.P. State Mineral Development Corporation (hereinafter referred to as 'the Corporation') which is a public sector undertaking. It is alleged in paragraph 4 of the petition that the Board of Directors of the Corporation by a decision dated 19-12-1996 granted approval for retrenchment of specific number of employees of different mines under the Corporation. True copy of the said resolution is Annexure 5 to the writ petition. Total number of such employees as indicated in the resolution is 460. The Board of Directors by the same resolution decided to request the State Government for providing a sum of Rs. 5.00 crores as loan to enable the Corporation to retrench the employees in accordance with law. In paragraph 7 of the petition it is alleged that the total number of the employees working in the Corporation are 838 out of which 744 are on regular basis and 94 are on consolidated/daily wage basis.
4. Against the said resolution of the Board of Directors the petitioner made representation to the Chairman-cum-Managing Director of the Corporation and to the State Government true copies of the same are Annexures 6 and 7 to the writ petition. In these representations a prayer was made that the employees should be absorbed in other departments of the State of U.P. or other Corporations. In paragraph 10 it is stated that as yet no final order of retrenchment has been passed and the petitioners are working but the salaries for the months of December, 1996, January and February, 1997 have not been paid to them at various units of the Corporation including those at Dehradun, Allahabad, Chopan and Lalitpur.
5. It is stated in paragraph 11 of the petition that the Corporation is a Government company incorporated under Section 617 of the Companies Act, 1956. Initially the Corporation was floated with authorised share capital of Rs. 20.00 crores and at present the authorised share capital of the company has been increased to Rs. 60.00 crores. In paragraph 12 it is stated that the Corporation was established as a Government Company in which 100% paid up capital is held by the U.P. Government and as such the Corporation is completely owned by the State Government and is amenable to writ jurisdiction. In paragraph 13 of the petition it is stated that the Corporation was established in 1974 by the State Government or providing acceleration in field of mining and other incidental activities. The objects of the Corporation are mentioned in paragraph 15 of the writ petition and the memorandum of Association is Annexure 11 to the writ petition. In paragraph 20 it is stated that Article 195 of the Articles of Association of the Corporation provides that the Governor of U.P. may issue directives to the company. Thus the activity of the Company is under the supervision of the U.P. Government.
6. In paragraph 32 of the petition it is alleged that the Corporation was making profits since its inception but suddenly in the year 1996-97 the Corporation has been reduced to a loss incurring unit because of various policy decisions of the U.P. Government. In various paragraphs thereafter the petitioner has referred to certain projects set up by the Corporation.
7. In paragraph 50 of the petition it is alleged that because of financial crisis and other problems the employees of the Corporation at various units have not been paid their salary for the last three months and the employees are facing great hardships alongwith their family members and they are at the verge of starvation. In paragraph 52 of the petition it is alleged that on 19-12-1996 the Corporation resolved to retrench 460 employees. In paragraph 6 of the petition it is stated that recording in some industries at Delhi which were closed down or relocated the Supreme Court directed payment of compensation. True copy of the order of the Supreme Court dated 4-12-1996 is Annexure-25 to the writ petition.
8. A counter affidavit has been filed on behalf of the respondent Corporation by its Managing Director. In paragraph 2 of the same it is alleged that the petitioner has an alternative remedy under the U.P. Industrial Disputes Act. In paragraph 5 of the counter affidavit it is alleged that in view of the shrinkage in the activities of the respondent Corporation and also increasing wage bill because of huge surplus manpower, the Board of Director of the Corporation vide its resolution dated 19-12-1996 decided to retrench the surplus man-power in accordance with the U.P. Industrial Disputes Act. In paragraph 7 it is stated that due to shrinkage in the business of the Corporation and also because of huge surplus employees and increased wages the Corporation is facing acute financial constraint and is totally dependent on grant-in-aid from the U.P. Government. In paragraph 9 of the counter affidavit it is stated that due to shrinkage in the business of the Corporation, the Corporation had to close down its mining activities at Lambidhar, Mussorie as per direction of the Supreme Court and the Corporation has been forced to face competition from the private sector. In paragraph 20 it is stated that due to drastic change in global industrial activities and also liberalising the economy and introducing the trade and investment of private sector in even core industries the Government had to liberalise its policy to attract N.R.Is. and industrial entrepreneurs in the State for development and industrialisation of the State. Various projects have been developed in the joint sector and the Government has decided to close down Bundelkhand Vikas Nigam Limited and transfer the granite lease to the Corporation in Lalitpur to develop the granite industry in the State in joint sector. In paragraph 26 of the counter affidavit it is stated that the Corporation is not able to pay salary to its employees in its various units at Dehradun, Chopan, Allahabad and Lalitpur due to acute financial constraints and non-availability of grant-in-aid from the U.P. Government. In paragraph 28 it is stated that the employer cannot be forced to run its business on loss and continue to carry on the huge surplus workforce without work. In paragraph 30 it is stated that the Corporation is facing acute financial constraint and is not able to pay salary to its employees. In paragraph 33 it is stated that the petitioner has na alternative remedy under the Industrial Disputes Act.
9. In this case various interim orders have been passed from time to time but it is settled law that the interim orders cease to exist when the petition is finally decided. Since we have heard the petition finally and are disposing it of finally these interim orders are of no relevance now. Learned Counsel for the petitioner has inforced that against one interim order S.L.P. was filed in the Supreme Court which was dismissed as withdrawn. In our opinion, since we are deciding the petition finally all these interim orders and their off shoots are now irrelevant.
10. It is unfortunate that several interim orders have been passed in this case from time to time for payment of crores of rupees as salaries to the employees when in fact most of them have no work to do and the Corporation is running on huge losses. We have been informed by the learned Additional Advocate General that over 13 crores had to be paid to the employee of the Corporation due to the interim orders of this Court although there is hardly any work for them. Thus Rs. 8.60 crores was paid to them on 6-4-1998, Rs. 1,25,75,000 was paid on 27-4-1998; Rs. 1,25,00,000 was paid on 31-8-1998 and Rs. 2.00 crores was paid on 16-12-1998.
11. In our opinion, this petition should not have been entertained at all and it should have been dismissed at the very out set but unfortunately it was entertained and a series of interim orders have been passed from time to time directing payment of crores of rupees as salary to the employees most of whom in fact have no work to do.
12. In our opinion the petitioners should have been straightway relegated to their alternative remedies under industrial law. If an industry is closed down, the remedy of the workers is to apply for closure compensation under Section 25FFF before the Labour Court/Tribunal. If it is not closed down, then their remedy is to apply to the prescribed authority under the Payment of Wages Act, or to the Labour Court under Section 33C(2) of the Industrial Disputes Act or Section 6-H (2) of the U.P. Industrial Disputes Act, but it is not proper for this Court to entertain such prayers in writ jurisdiction. In Scooters India v. Vijai E. V. Eidred, 1998 (6) SCC 549, the Supreme Court has held that when a remedy is available under industrial law a writ petition should not be entertained. It is unfortunate that in the present case repeated interim orders have been passed for payment of salaries to the employees, which in fact amounts to allowing the petition finally so far as payment for those periods is concerned. It is settled law that an interim order should not be passed when in substance it will amount to a final order vide State of West Bengal v. Calcutta Hardware Stores, 1986 (2) SCC 203. In the present case despite the settled legal position, on 16-1-1998 an interim order was passed directing payment of salaries for October, November and December, 1998, although Counsel for the Corporation stated before the Court that the Corporation has no funds to make such payment (as the order sheet reveals). Then on 10-3-1998 despite an affidavit on behalf of the Corporation stating that it has no funds the Court passed an interim order directing payment of three months salary. Thereafter on 27-7-1998 another interim order was passed directing payment of three months salary to the employees. On 23-2-1999 this Court passed another interim order directing the State Government to provide loan of Rs. One crore to the Corporation for paying two months salaries to the employees. On 17-3-1999 the Court directed the State Government to release Rs. One crore to the Corporation for payment of salaries to the employees within 15 days. On 2-6-1999 the Court directed the Principal Secretary, Industrial Development, U.P. Government to be personally present in Court. On 4-8-1999 the Secretary to the State Government was personally present, and a direction was given for payment of salary for the months of June and July, 1999 within 15 days.
13. In this case it appears that such repeated interim orders were passed by this Court for payment of crores of rupees despite the statement on behalf of the Corporation that it is incurring huge losses and has no funds and no work for most of the employees, and despite availability of the alternative remedy under industrial law. Such interim orders practically amount to giving final relief for the periods in question, which is against settled legal principles.
14. This Court must exercise self restraint in such matters, and must realize that our country is poor with scant resources. One may be very large hearted, but then economic realities must also be seen. Money does not fall from the sky, and can only be realised by additional taxation on the public or taking loans, both of which lead to additional burden on the people. In the present case the respondent Corporation has been practically compelled by interim orders of this Court to fork out crores of rupees to the employees. It must be understood that payments of large amounts of money by the Government must have legislative sanction under our Constitutional scheme, as held by a Division Bench of this Court in Ram Milan Shukla v. State of U.P., 1999 (35) ALR 364, which decision was upheld by the Supreme Court. The directions of this Court in the Uttarakhand case to pay huge amounts of money to the alleged victims of police excesses and for creating a Fund for upliftment of women was rightly set aside by the Supreme Court in A.K. Singh v. Uttarakhand Jan Morcha, 1999 (4) Supreme Court Cases 476. As regards the directions by the Supreme Court in certain cases for payment of compensation or absorption, these directions must be confined to the petitioners in those cases only, and they cannot be treated as a precedent for other cases as no reasons have been given in these decisions. After all, a case is a precedent for what it actually decides, vied M/s. Goodyear India Ltd. v. State of Haryana, AIR 1990 SC 781. Mere directions of the Supreme Court in specific cases without giving any reason are no precedents, since it is only the statement of law in a decision which is binding, vide Municipal Committee v. Hazard Singh, AIR 1975 SC 1087.
15. In Rajendra v. State of Rajasthan, AIR 1999 SC 923, the Supreme Court following its own decision in Delhi Development Horticulture Employees Union v. Delhi Administration, Delhi, AIR 1992 SC 789, held that the right to livelihood was found not feasable to be incorporated as a fundamental right in the Constitution and therefore employment was also not guranteed under the Constitutional scheme. In Sandeep Kumar v. State of U.P., AIR 1992 SC 713, the Supreme Court observed that where there was no work in the project the employees cannot be regularised. In State of Himachal Pradesh v. Ashwani Kumar, JT 1996 (1) SC 214, the Supreme Court held that where a project has to be closed down for non-availability of funds a direction to regularise the displaced employee of the project could not be given because such direction would amount to creating posts and continuing them in spite of non-availability of work. The same view was taken in State of U.P. v. U.P. Madhyamik Shiksha Parishad Shramik Sangh, AIR 1996 SC 708. It follows from these directions that there is no legal right to get re-absorption.
16. In our opinion Article 41, which deals with the right to work, has been deliberately debt by the Founding Fathers of our Constitution in the Directive Principles (and is hence unenforceable in view of Article 37) and had not been made a fundamental right, because the Founding Fathers in their wisdom realized that however appealing the idea that everyone should be provided employment may seem economic realities cannot be overlooks. In Thomas Jaicab v. Union of India, 1991 AWC 1384, it was held by a Division Bench of this Court that there is no fundamental right to get employment. In our opinion Article 21 to the Constitution cannot be stretched so far as to mean that everyone in the country must be given a job. The number of available jobs are limited, and hence the Court must take a realistic view.
17. We feel that the time has now come when a comprehensive decision is required from the Court regarding the economy of this country and the public sector.
18. In this connection it may be mentioned that when India became independent in 1947 there was certainly need for a public sector so that the infrastructure and an industrial base could be built up in the country. At that time the economic position in the country was that India was overwhelmingly dependent on import of industrial goods and machinery and other items from Western countries and was not economically self reliant. There was great dearth at that time of private capital and industrial skills. The equity market was small, and there were very few engineers and technicians. Hence under the wise leadership of Pandit Nehru it was decided to create a public sector so as to establish an infrastructure and an industrial base, and thus make the country economically self-reliant. Hence it was correct to have a public sector for some time after independence, and in fact the public sector led to substantial economic growth of the country since an infrastructure was set up and an industrial base was established.
19. However, after the infrastructure of an industrial base was established the position has not totally changed and requires a radically new economic policy. Today adequate private funding is available from the financial market for any viable product. The financial constraints for industry that were present at the time of Independence no longer exist. Also, today India has outstanding managers, engineers, technicians, etc. which was not so in 1947.
20. This being the changed position we have now to drastically review Our policy towards the public sector. The truth of the matter is that most of the public sector undertakings today, including the respondent Corporation, are running at huge losses of tens or even hundreds of crores of rupees which burden has to be borne by the public onwhom additional taxation has to be imposed. Most of these public sector undertakings and Government Corporations have in fact now become white elephants which are a huge burden on the Indian people. Almost all of them are run on the basis of short term political compulsions and total lack of accountability. Almost all of them are miming on huge losses and are inefficient and are often treated as 'Jagirs' of bureaucrats and politicians who have diluted standards and effectiveness of management, and they are often centers of rampant corruption. Their independence is really a myth. They are heavily overstuffed. For instance even if the capacity of an enterprise is to employ only 500 persons it is often found that there are 2000 or more employees who are appointed and are drawing huge salaries and allowances without having much work, with the result that these public sector enterprises run on huge losses. These public sector enterprizes are not run on business lines and efficiently. Politicians and bureaucrats etc. get their men appointed in these corporations although often there is no work for them, and they are only drawing salaries without anything to do. The nation cannot bear this rampant economic mis-management any further. We can no longer afford squandering away huge amounts of public funds on inefficient and unproductive enterprizes. We are a poor nation with scant resources and must be very strict in fiscal matters.
21. In our opinion, the time has now come when almost all these public sector undertakings should be privatised, or if the private sector is unwilling to take them over they should be closed down, since most of them are sick and often with outdated technology. No doubt this privatization and closure would in the short run lead to may casualties as many of such enterprises running of huge losses may have to be closed down leading to temporary hardship in the form of unemployment, but in the long run it will lead to efficiency and business-like methods in the economy, regulating in rapid economy growth. The Prime Minister of the country, Shri Atal Behari Vajpayee, has rightly said that hard decisions are now necessary in the economic sphere, and it is heartening to note that the Indian Government in now promoting private business. It must be clearly understood that in today's world order no industry will long survive if it is not internationally and nationally competitive. International factors e.g. the world Trade Organization rules, to which India is committed, urgently require us to modernize our economy and make our industries efficient, competitive, and cost conscious. We must produce better quality products at lower prices (as China is doing). We should consider the example of West Germany where private enterprize took the country rapidly forward after the Second World War, while East Germany was left far behind because the dominant public sector throttled enterprize and efficiency and led to a relatively unproductive and inefficient economy with outdated technology, regulating in massive problems after German re-unification.
22. It may be mentioned that there is a terrible fiscal crisis in the country. The Central Government has a debt of about Rs. 8,00,000 crores on which interest of about 80,000 crores has to be paid annually to foreign banks and financial institutions. The state of U.P. has a debt of about 60,000 crores on which the annual interest Liability is about Rs. 6,000 crores. Much of the revenue of the State is going for paying the interest on the debt, and now the position has been reached where loans have to be often taken merely for paying interest on the previous loans. Thus our country is in a debt trap, such as in the countries of South America. We just cannot afford this fiscal mismanagement any more. It is common sense that every entity runs on finance, whether the entity is a house hold, a company, or a Government. Fiscal discipline is absolutely essential for all entities, but the unfortunate fact is that in our country it seems that nobody has cared for this for decades, and now the result is that our country if facing a severe fiscal crisis, and both the Central Government and State Governments are practically broke. There is no money to pay salaries to the employees, teachers etc. and many of them have not received salaries for months, and even G.P.F. amounts are being utilized for paying current salaries. For instance, the U.P. Government has recently taken a huge overdraft from the Reserve Bank for paying monthly salary to the employees.
23. The truth of the matter is that despite it utility in the early years after independence, today the public sector is inefficient and unproductive. To give an example, we may consider the insurance business. This sector is in fact very unfair to the public. To give an example, if a person had taken an L.I.C. policy for Rs. 5000, forty years ago today he would receive payment of about Rs. 8000 and the purchasing power of this would be equivalent to about Rs. 500, forty years ago. In Western countries, on the other hand, if a person had taken such a policy equivalent to Rs. 5000 then after 40 years he would get about Rs. 70,000 to Rs. 80,000 since the payment is linked to the rise in the price index. If a person dies in the meanwhile the L.I.C. does not make the payment immediately but it usually takes a very long time, and after a great deal of harassment to get the payment, if it is paid at all. Similarly, it is pointless to go in for comprehensive insurance for one's car, and instead one should take only third party insurance. This is because the premium on comprehensive insurance is so heavy that if one does not take it and instead deposits the premium in one's Bank account he can after some time pay for the repair of the car if there is an accident. On the other hand, if he takes a comprehensive insurance policy for his car and that meets with an accident the insurance company, which today is a public sector undertaking, makes payment after a long time and after considerable harassment, and often the claim is rejected on hyper-technical ground (as experience has shown). In Western countries, on the other hand, payments are made within a day or two by cheque because the insurance companies are in the private sector, and they have to face competition and hence have to be efficient. Hence in our opinion the Government rightly decided to privatise the insurance sector.
24. We may also consider the nationalized banks. Here too, there is total inefficiency and poor service to the depositors. Anyone who has been to a bank in U.S.A. or Europe will see how efficiently it is run, and how quickly the customer is served. Similar inefficiency is in our other public sector enterprises.
25. It may be mentioned that in money matters one cannot be populist for a long time, and one cannot waive of an economic problem by speeches and rhetoric. Hard economic realities must be faces and realised. There have been deficits in our budget year after year and these deficits had to be covered by taking loans from foreign banks and such loans carry liability to pay interest. Taking of loan makes economic sense if the loan is used for creating an asset which yields income greater than the rate of interest. For example, if one takes loan at ten percent interest it should be used for creating an asset which generates an income of say 15 to 20 percent and thereby the principal amount as well as interest can gradually be repaid. However, if one takes a loan and blows it up in unproductive expenditure, as has often been done in our country, it is only inviting trouble because the interest liability will keep mounting. Today, the financial position of the country is that the interest liability on the existing loans is so high that loans have to be often taken simply to pay the interest on the previous loan and/or to pay salary to employees and there is hardly anything left for development work.
26. Today the Government of U.P. is facing an extremely adverse fiscal situation. The revenue deficits have been increasing year after year. From a revenue surplus of Rs. 250 crores in 1987-88 the State now has a revenue deficit of Rs. 8666 crores in 1998-99. Revenue deficit as a percentage of Revenue Receipts has reached a whopping 46% in 1998-99. The wage bill of State employees alone accounts for about 150% of the State's own revenue resources. As a result of high and continued deficits, running for more than a decade, indebtedness of the State has risen sharpely from Rs. 10,722 crores in 1987-88 to Rs. 58,350 crores in 1998-99. The debt servicing burden constituted 37% of the total revenue receipts in 1998-99. The significant dimensions of the fiscal crisis of the U.P. Government are as follows :
(i) Revenue expenditure has reached the level of 146% of revenue receipts in the State.
(ii) Expenditure on salary and allowances and pension of Government servants has reached almost 150% of the States, own tax revenue.
(iii) Capital expenditure has come down from 17.30% of total expenditure in 1987-88 to 8.2% in 1997-98.
(iv) While the direct nominal cost of services have increased manifold i.e. salary of Class III and Class IV employees has increased by nearly 75 and more than 100 times respectively between 1964 and 1998, user charges have actually declined in some areas.
(v) In the 50 public sector units, the total investment of State Government was to the tune of Rs. 13,127 crores till January, 1997 but the returns received against these investments were negligible.
(vi) If current trends of borrowing and the State's own revenue receipts continue, the State would sooner or later have to devote all its revenue receipts to debt servicing alone.
(vii) The average tax rate in U.P. is only 50% of its level in the middle income States. Since tax compliance in the State is relatively poor, the actual tax revenue realised is almost one-fourth in comparison to these States.
27. These facts reveal that the U.P. Government is clearly headed for a financial crisis. This is reminiscint of the situation prevailing in France before the French Revolution of 1789. At that time the position in France was that the Government expenditure was far in excess of the revenue, and the deficit had to be covered by taking loans from some source. Repeated efforts by sensible Ministers like Turgot and Necker to modernize the economy and save wasteful expenditure were blocked by the foolish King Louis XVI acting on the advice of the arch-conservative and reactionary aristocrats and the silly queen Marie Antoinette. The result was that the day came when no financer or creditor was willing to advance any further loans, as the French Government had lost its credit worthiness. We must take a lesson from history and introduce strict fiscal discipline now if we wish to avoid a situation like that in France developing here.
28. Uttar Pradesh could be one of the most developed States in the country, as it has huge natural resources and abundant natural wealth. However, the reality is that half the population lives below the poverty line. The per-capita income of U.P. has declined to 35% less than that of India, and it is ahead only of Bihar and Orissa. The State is now suffering from economic stagnation, and annual per capita growth has slowed down to less than 1% in the nineties, even as growth has accelerated across the rest of India. As a result of high deficits for more than a decade, debt-service has increased its claim on total state revenue from 13% in 1985-86 to 32% in 1997-98 and is still going up. Salaries, unfunded pensions and interest payments now more than exhaust current revenues. The State Government is not only exhausting its capacity to borrow from the Government of India and from the regulated financial market, it has also resorted exessively to the use of reserves and employees' provident funds to finance the deficit as well as to State guaranteed off-budget loans raised by state owned enterprises. Behind the fiscal crisis is a combination of stangnant revenues and rapidly rising current expenditures. The slow growth has itself made increasing the revenue yield difficult. Undisciplined rise in salaries and subsidies as a result of polulist policies of successive Governments has resulted in U.P. being caught in a vicious circle, with low growth not only holding living standards down but also reducing revenue yield, and this fiscal crisis has completely blocked investment for further development.
29. In our opinion, the only way out of this fiscal crisis is privatisation, and closing down the sick industries which the private sector is unwilling to take over. In our opinion, the Government must face the probled squarely and realistically and not bother about populists who have no idea about economics.
30. In our opinion the fiscal crisis can be a blessing in disguise for us because it will force us to be efficient and business-like, and it will compel us to give up wasteful, uneconomic and populist methods of running the economy.
31. It may be mentioned that a private enterpreneur takes interest in his business as he is personally involved in it. He works day and night as his money is involved in the business and he has to run the enterprize efficiently and in a business like manner in order to face competition. Hence the Government must encourage private enterprize. All the countries in the world which are today industrialised a.g. U.S.A., Germany, Japan, etc. did their industrialisation under Governments which were friendly to business and which encouraged growth of business and industry. In India, on the other hand, whenever a businessman starts any industry or business he is harassed in every manner. No sooner the business or industry starts about 20 inspectors land on his head and demand money. Workers starts creating problems. There is no supply of electricity and other essentials, and the industry is soon forced to close down. To give an example, in the fifty's or sixty's the Government decided to set up the Naini Industrial Complex near Allahabad across the Jamuna river. The idea was to develop Allahabad which was an undeveloped city. Businessmen were invited to set up industries and they were given plots of land and other incentives. However, two or three decades thereafter most of these industries have closed down because of harassment of the business by the Inspector Raj, labour problem, electricity problem etc. Only the public sector enterprises, which are running on huge losses, continue. In our opinion, the licence Inspector Raj may have been useful at the early stage after independence as the country at that time had no industrial infrastructure and it was necessary to harness the scarce economic resources of the country for industrial take-off, and hence at that time the licence and control system may have been reasonable. However, something which may be reasonable and valid at one time may become unreasonable and unconstitutional later on, as held by the Supreme Court in Motor General Traders v. State of Andhra Pradesh, AIR 1984 SC 121. Today the need of the hour is decontrol of the economy and encouragement of private enterprise.
32. In our opinion, under Article 19(1)(g) of the Constitution every person has a fundamental right to do trade or business, and this means that there should ordinarily be no requirement of obtaining a licence or permission for starting an industry or business except for industries like armament industries or industries producing toxic substances etc, which may be under Government control. Except for these exceptional kinds of industries there should be no requirement to take a licence for starting or expanding any industry.
33. Immediately after independence and for some time thereafter the requirement to take a licence for starting a new industrial undertaking under Section 11 of the Industries (Development and Regulation) Act, 1951 may have been a reasonable restriction on the right under Article 19(1)(g). However, as held by the Supreme Court in Motor General Trader's case (supra), a law which may be reasonable and Constitutional at one stage may become unreasonable and unconstitutional at a later stage. Today the need for the licence permit Raj is over (for the reasons already mentioned above). In our prima facie opinion, the requirement of a licence or permit to set up an industry is today wholly unreasonable and violative of Article 19(1)(g) of the Constitution, and can no longer be justified as a reasonable restriction under Article 19(6). Regulations can no doubt be framed for regulating industries from the point of view of the environment ecology, health etc. (e.g. that industries should not discharge harmful effluents into rivers and the atmosphere which can damage. The health of people and that industries may be prohibited in areas where they can damage the ecology or environment, etc.) but there should be ordinarily no requirement for private enterpreneurs of obtaining a licence for starting or expanding an industry as that would be violative of Article 19(1)(g) of the Constitution. We are not expressing a final opinion about the Constitutional validity of Sections 11 and 11A of the Industries (Development and Regulation) Act, 1951 as that is not under challenge in this petition, but we are certainly expressing our prima facie opinion on this issue as the time has, now come for doing so.
34. To solve the country's economic problems there should be rapid economic growth, and this is possible if private enterprize is encouraged and the public sector is largely privatised, or closed down where it is sick and private businessmen are anwilling to take it over. Even banks, telephone services, electricity, water supply, insurance etc. should all be privatised as speedily as possible, as they are inefficient. Everyone knows how efficient the electricity companies run by Martin Burds were, but after they were taken over by the U.P. State Electricity Board they have become inefficient and full of corruption. Many of the Municipal services should also be privatised. In most municipal corporations the entire money coming from municipal taxes goes to pay salaries of municipal employees and hardly anything is left for keeping the city clean and maintaining water works, the sewage system, reparing roads etc. All this should be handed over to the private sector/contractors who will introduce efficiency and business like methods, which will be of great service and utility to the general public. In our opinion, this is the only way out for the country to progress. Populist slogans and rhetoric will not take us anywhere, rather they have already taken us to the brink of disaster.
35. India is a country with tremendous economic potential, but today the economy is choked with excessive controls and regulations, which only lead to corruption. The public sector is largely inefficient and unproductive and the time has come when one must face the economic realities squarely and truthfully if we wish our country to progress. With correct policies India can become a first rate industrial power in 20 years like Europe, America or Japan. We have the largest depostis of iron ore and uranium in the world, we have a large software base, we have some of the best technical and scientific brains in the world (the science and mathematics faculties of American Universities are full of Indian teachers), we have a huge talent for information technology and communication business. All that is now required is correct policies.
36. This Court, therefore, recommends to both the Central and State Governments to rapidly privatise most of the public sector, and even services like banks, telephone, electricity, water works, municipal services etc. and not bother about populist slogans and rhetoric by people who have no idea about economics. No doubt there will be a temporary hardship by such tough measures but in the long run it will lead to healthy and rapid economic growth.
37. It must be realised that jobs cannot be created by Court orders, otherwise this Court would be very happy to direct that every one in the country is given a job. It is only by rapid economic growth that jobs on a large scale are created, and hence even if privatization results in a temporary increase in unemployment this will be compensated many times over when large number of jobs are created by the rapid growth of the economy and industrialization. Hence we recommend that the Government (both Central and State) should get out of much of the economy fast, and invest the money saved (which it is presently incurring in the loss making public sector) in education, roads and infrastructure to boost rapid economic growth, principally through encouraging private enterprize.
38. As regards the respondent corporation it is obvious that it is totally sick and should be either privatised or closed down.
39. So far as the claim of the petitioners and other employees of the Corporation is concerned, in our opinion they have already been treated over-indulgently. Most of them are without work and are surplus, and crores of rupees have been already paid to them for doing nothing. All this money has come from the public purse which can no longer be treated in such a cavalier manner. Money does not fall from the sky but is can only be obtained by additionally taxing the people taking loans on heavy interest. Hence the burden of the payment to the employees of the Corporation has in fact been placed on the general public, which is totally unfair to the people.
40. In view of the above, there is no force in the petition and it is according dismissed. No order as to costs.
U. K. Dhaon, J.
1. I have perused the judgment prepared by my esteemed brother Hon'ble Mr. Justice M. Katju and it is my mis-fertune that I am not in agreement with the view taken by my brother Katju.
2. The instant writ petition was filed by the petitioners before this Court on 10-4-1997 and on 11-4-1997 this Court passed the following order :
"Hon. B. Kumar,. J.
Hon. A. S. Gill, J.
Appearance on behalf of opposite parties No. 2 to 5 has been, put in through Counsel Sri A.K. Verma. Learned State Counsel has taken notice for opposit parties No. 1 and 6.
On behalf of opposite parties it is submitted that the petition is pre-mature since no one has been retrenched so far. We, however, at this stage, find that a decision to this effect has been taken by opposite party No. 2, who has forwarded the matter for consideration of the State Government, hence, it is a case of imminent apprehension of injury. The learned Counsels for the State as well as that of the Corporation shall seek instructions and indicate as to whether the State Government has taken any decision in the matter and as to in what manner the opposite parties propose to adjust the persons if retrenched from the service of the Corporation. If there is any other scheme under consideration, that may also be indicated.
List after three weeks."
3. The petitioners is a Union of employees of the U.P. State Mineral Development Corporation (hereinafter referred to as 'the Corporation') which is a public sector undertaking. It is alleged in paragraph 4 of the petition that the Board of Directors of the Corporation by a decision dated 19-12-1996 granted approval for retrenchment of specific number of employees of different mines under the Corporation. True copy of the said resolution is Annexure-5 to the writ petition. Total number of such employees as indicated in the resolution is 460. The Board of Directors by the same resolution decided to request the State Government for providing a sum of Rs. 5.00 crores as loan to enable the Corporation to retrench the employees in accordance with law. In paragraph 7 of the petition it is alleged that the total number of the employees working in the Corporation are 838 out of which 744 are on regular basis and 94 are on consolidated/daily wage basis.
4. Against the said resolution of the Board of Directors the petitioner made representations to the Chairman-cum-Managing Director of the Corporation and to the State Government. True copies of the same are Annexures 6 & 7 to the writ petition. In these representations a prayer was made that the employees should be absorbed in other departments of the State of U.P. or other Corporations. In paragraph 10 it is stated that as yet no final order of retrenchment has been passed and the petitioners are working but the salaries for the months of December, 1996, January and February, 1997 have not been paid to them at various units of the Corporation including those at Dehradun, Allahabad, Chopan and Lalitpur.
5. It is stated in paragraph 11 of the petition that the Corporation is a Government company incorporate under Section 617 of the Companies Act, 1956. Initially, the Corporation was floated with authorised share capital of Rs. 20.00 crores and at present the authorised share capital of the company has been increased to Rs. 60.00 crores. In paragraph 12 it is stated that the Corporation was established as a Government Company in which 100% paid-up capital is held by the U.P. Government and, as such, the Corporation is completely owned by the State Government and is amenable to writ jurisdiction. In paragraph 13 of the petition it is stated that the Corporation was established in 1974 by the State Government for providing acceleration in the field of mining and other incidental activities. The objects of the Corporation are mentioned in paragraph 15 of the writ petition and the memorandum of Association is Annexure 11 to the writ petition. In paragraph 20 it is stated that Article 195 of the Articles of Association of the Corporation provides that the Governor of U.P. may issue directives to the Company. Thus, the activity of the Company is under the supervision of the U.P. Government.
6. In paragraph 32 of the writ petition it has been stated that in the year 1993-94 the profit earned by the Corporation was to the tune of Rs. 4.10 crores, in the year 1994-95 the profit earned by the Corporation was Rs. 1.67 crores and in the year 1995-96 the profit earned by the Corporation was Rs. 1.47 crores but suddenly the Corporation started incurring loss and the loss calculated in the current financial year upto August, 1997 is to the tune of Rs. 1.08 crores.
7. In paragraph 50 of the petition it is alleged that because of financial crisis and other problems the employees of the Corporation at various units have not been paid their salary for the last three months and the employees are facing great hardships along with their family members and they are at the verge of starvation. In paragraph 52 of the petition it is alleged that on 19-12-1996 the Corporation resolved to retrench 460 employees. In paragraph 56 of the petition it is stated that regarding some industrist at Delhi which were closed down or re-located, the Supreme Court directed payment of compensation. True copy of the order of the Supreme Court dated 4-12-1996 is Annexure 25 to the writ petition.
8. A counter affidavit has been filed on behalf of the respondent Corporation by its Managing Director. In paragraph 2 of the same it is alleged that the petitioner has an alternative remedy under the U.P. Industrial Disputes Act. In paragraph 5 of the counter affidavit it is alleged that in view of the shrinkage in the activities of the respondent Corporation and also increasing wage bill because of huge surplus man-power, the Board of Director of the Corporation vide its resolution dated 19-12-1996 decided to retrench the surplus man-power in accordance with the U.P. Industrial Disputes Act. In paragraph 7 it is stated that due to shrinkage in the business of the Corporation and also because of huge surplus employees and increased wages the Corporation is facing acute financial constraint and is totally dependant on grant-in-aid from the U.P. Government. In paragraph 9 of the counter affidavit it is stated that due to shrinkage in the business of the Corporation, the Corporation had to close down its mining activities at Lambidhar, Mussoorie as per direction of the Supreme Court and the Corporation has "been forced to face competition from the private sector. In paragraph 20 it is stated that due to drastic change in global industrial activities and also liberalising the economy and introducing the trade and investment of private sector in even core industries the Government had to liberalise its policy to attract N.R.Is. and industrial enterpreneur in the State for development and industrilisation of the State. Various projects have been developed in the joint sector and the Government has decided to close down Bundelkhand Vikas Nigam Limited and transfer the granite lease to the Corporation in Lalitpur to develop the granite industry in the State in joint sector. In paragraph 26 of the counter affidavit it is stated that the Corporation is not able to pay salary to its employees in its various units at Dehradun, Chopan, Allahabad and Lalitpur due to acute financial constraints and non-availablity of grant-in-aid from the- U.P. Government. In paragraph 28 it is stated that the employer cannot be forced to run its business on loss and continue to carry on the huge surplus workforce without work. In paragraph 30 it is stated that the Corporation is facing acute financial constraint and is not able to pay salary to its employees. In paragraph 33 it is stated that the petitioner has an alternative remedy under the Industrial Disputes Act.
9. On 16-1-1998 the following interim order was passed by this Court :
Hon. S.C. Verma, J.
Hon. Dr. M. Sharan, J.
"Learned Standing Counsel Sri C.M. Nohak prays for and is granted ten days' time to file counter affidavit. Learned Counsel for the respondents appearing on behalf of Corporation would file reply to the allegations made in the affidavit filed in support of the application for payment of salary within ten days and place on record why the payment of salary has not been made to the employees of the Corporation. The Corporation is directed to make payment of salary of the employees for the months of October, November and December, 1998, if not already made, within one month. The learned Senior Counsel for the Corporation Sri S.C. Misra has stated before that the corporation has no fund to make the payment of salary to its employees and it has asked the Govt. to release the funds in this regard. We firect the Corporation to place on record this material through affidavit."
10. Thereafter on 10th March, 1998 after considering the counter affidavit filed by the opposite parties another interim order was passed by this Court :
Hon. O.K. Trivedi, J.
Hon. I.P. Vasishth, J.
"By order dated 16-1-1998 this Court directed the Corporation to make payment of salary to the employees for the months of October, November and December, 1997 within a period of one month. No salary has so far been paid and on the other hand the Corporation has informed the Court through an affidavit that the Corporation has no fund and has asked the Government to issue some grant for payment of salary to its employees. By order dated 11-4-97 this Court directed the State to indicate as to whether the State Government has taken any decision in the matter and if so in what manner. By the same order it was also expected from the opposite parties that they will adjust the persons retrenched from services of the Corporation. The State did not comply with any order nor placed before this Court any material to show as to whether any scheme has been formulated keeping in mind the interests of the employees. It is not disputed that these employees have not received salary for more than six months. The State is a Welfare State and is empowered under the Uttar Pradesh State Control over Public Corporation Act, 1975 to issue any directions to the Corporation of which it will be the sole arbiter. Today, again a request has been made that this case be adjourned as the Advocate General is not available. It was also pointed out that the Government possesses 100% shares in this Corporation. In these circumstances, without making any observations on the merit of the case, we direct the State to ensure the payment of at least three months' salary to the working employees by the end of this month. It will be open for the State to realise the amount from the assets of the Corporation. The order has been passed in the presence of Chief Standing Counsel. A copy of this order may be handedover to Cheif Standing Counsel by tomorrow free of cost. Learned Chief Standing Counsel will ensure compliance of the order.
List in the month of April, 1998."
11. On 23rd February, 1999 the Division Bench comprising of Hon'ble the Chief Justice and Hon'ble Mr. Justice Virendra Saran passed the following order :
Hon. N.K. Mitra, CJ.
Hon. Virendra Saran, J.
"As it is submitted by the learned Advocate General that perhaps the Government has taken a decision in the matter in December last regarding absorbing the staff of Corporation. Let a supplementary affidavit be filed by him stating the current position regarding the decision taken by the Government regarding the affected employees of the concern and such affidavit is to be filed by 17th March, 1999 which is date fixed for hearing of the matter.
It is further directed that the Government should provide loan amounting to Rs. 1 crore to the Corporation for payment of salary to the persons concerned for two months without prejudice to the rights and contentions of the parties. The Corporation will immediately disburse the amount of salary amongst the affected employees on getting the loan since it is submitted on behalf of the Corporation that it has no fund of its own for payment of salary."
12. Thereafter on 17th March, 1999 another interim order was passed by this Court which is as follows :
Hon. A.S. Gill, J.
Hon. Dev Kant Trivedi, J.
"Learned Standing Counsel seeks further time to file supplementary counter affidavit as directed in the order dated 23rd Feb., 1999. It appears that the opposite parties are not following the orders of this Court in respect of payment of salary to the members of the Association. Succession orders have been passed in this regard which are on the record. It was clearly stated that the Government shall release an amount of Rs. one crore in favour of the Corporation as loan enabling the Corporation to make payment of salary to the members of the Association. It appears that the concerned authorities have paid no need to the orders of this Court which were passed in presence of the learned Standing Counsel representing the State.
It is hereby directed that the opposite parties shall release Rs. one crore in favour of the Corporation within 15 days from today as loan and out of that amount salary to the members of the Association shall be paid. Compliance of this order shall be informed to this Court by the next date.
List this petition on 13rd April, 1999."
13. On 4-8-1999 the following interim order was passed by this Court :
Hon. Jagdish Bhalla, J.
Hon. Ikram-ul-Bari, J.
"Mr. Harbinder Raj Singh, Secretary to the State Government Department of Industrial Development who happens to be the Chairman-cum-Managing Director of U.P. State Mineral Development Corporation is personally present today and explained to us that a decision was taken in the month of December, 1998 to start the process for closing the activity of the Corporation and an offer for voluntary retirement scheme was given to the employees. However, those employees, who have not accepted the scheme, they would be absorbed in the Govt. service/Govt. undertaking. Three of such employees have already been absorbed, he is not in a position to inform their names. There is no reason not to accept the statement made by a senior officer. It is further informed that he will ensure payment of salary for the month of June and July, 1999 within 15 days. Thereafter, he further assures this Court that a fresh proposal in the light of the order passed by this Court on 23-2-1999 would be placed before the appropriate authority for sanction of loan amounting to Rs. 1 crore towards the payment of the salary of the employees. This loan amount would only be spent towards the payment of salary of the employees till next listing of the case. Process of sanction of loan must come to an end within two months. It has also been informed that as far as the absorption of the employees are concerned, it would be taken up expeditiously by a Committee headed by Chief Secretary so that the employees who have opted for absorption are absorbed as early as possible either in the State Government, its undertaking or its agency. This process will be completed within a period of three months. We provide that while considering the absorption, the State Governemnt shall do so in the light of the judgment of the U.P. Chalchitra Nigam Ltd. Kamchari Union and others v. State of U.P. & Others, 1990 (VIII) LCD 384.
List on 29th November, 1999. This deferment has been shown in the interest of justice to enable the State Government to complete the aforesaid assurance/direction within the time frame referred to hereinabove and due to the sincere efforts indicated by Sri Harbinder Raj Singh on his part. Mr. Harbinder Raj Singh need not be present before this Court again till further orders."
14. On behalf of the respondents an application for extension of time has been moved on the basis of which the case has come up before this Bench.
15. We have heard Sri S.K. Kalia, learned Counsel for the petitioner and Sri R.K. Singh, Addl. Advocate General assisted by Sri Ashok Kumar Srivastava, Addl. Chief Standing Counsel.
16. Learned Addl. Advocate General has submitted that six months' time may be granted to settle the dispute. He further submits that a substantial amount has already been paid to the employees of the Corporation in compliance of the various orders passed by this Court although the petition itself was legally not maintainable before this Court as the petitioners have remedy under the Industrial Disputes Act and Payment of Wages Act.
17. Sri S.K. Kalia, learned Counsel for the petitioners submits that this Court has already considered the arguments of the opposite parties regarding the alternative remedy and the Court was on the first very day satisfied that the writ petition is maintainable before this Court. He further submits that against the order dated 23rd February, 1999 the Special Leave Petition was filed before the Apex Court which was dismissed by the Apex Court as withdrawn. He also submits that he has no objection if a reasonable time is granted to the State Government to/make compliance of the orders passed by this Court.
18. I have considered the arguments advanced by the learned Counsel for the parties and also gone through the various interim orders passed by this Court from time to time and also perused the averments made in the affidavit filed in support of the application for extension of time dated 3-12-1999. The relevant paragraphs 2, 3 & 4 of the the affidavit filed by Qazi Mohd. Ahmad Mujtaba, Under Secretary, Industrial Development Department, U.P. in support of the application for extension of time are as follows :
"2. That in compliance of the order of this Hon'ble Court dated 4-8-1999, the employees of the Corporation have already been paid the two months salary in the month of August, 1999.
3. That as far sanction of loan of Rs. One crore, U.P. State Mineral Development Corporation is concerned another effort was made but due to serious financial constraints the Govt. has not been able to sanction the loan.
However, the Govt. has allowed use of Rs. On Crore out of the funds available with the U.P. State Mineral Development Corporation out of the sale proceeds of its assets for payment of salary and wages to its employees, as directed by the Hon'ble High Court. Accordingly one month salary has already been released in the month of November, 1999 and another month's salary and wages will be paid soon.
4. That as regard the absorption of the employees of the Corporation, meetings were held on 11-10-1999 and 5-11-1999 which were headed by Industrial Development Commissioner in which 68 employees of the State Mineral Development Corporation have been identified for possible absorption in various organisations under the Industies Department. Further posts are also being identified for more adjustments. This possible absorption of the employees will take more time as there are several difficulties which have to be removed. In this regard, furthere proposal has to be considered by Chief Secretary after collecting the complete data and identifying the employees. For all the aforesaid process opposit parties require six months' time and, as such, in the interest of justice, time earlier granted vide order dated 4-8-1999, may be extended and opposite parties may be given six months more time."
19. From perusal of the aforementioned facts, it is clear that the State Government is taking all steps either to absorb the services of the employees of the Corporation in other departments of the Government or to retrench the services and also to offer voluntary retirement.
20. I have also perused the order dated 3-12-1999 passed by the Apex Court in S.L.Ps. No. 4160-4170 of 1999 in which an undertaking was given by the State Government to pursue the proceedings pending before High Court and the S.L.Ps. were dismissed as with drawn. In view of the aforesaid facts, the petition cannot be dismissed on the ground that the petitioners have alternative remedy under the Payment of Wages Act and the Industrial Disputes Act. This Court in the case of Suresh Chandra Tewari v. District Supply Officer, reported in AIR 1992 Allahabad 331 has held that the petition cannot be dismissed on the ground of alternative remedy if the same has been entertained and interim order passed. Further, in the case of Methodist Church in India v. The Bareilly Development Authority, reported in AIR 1998 Allahabad 151, this Court has held that rule of alternative remedy does not oust the jurisdiction of the High Court to grant relief under Article 226 of the Constitution of India if it is found necessary for promotion of justice and prevention of in-justice which is primary object of the constitutional provision. The Hon'ble Supreme Court in the case of Whirlpool Corporation v. Registrar of Trademarks, reported in AIR 1996 SC 22, has held that alternative remedy is not a bar in case of infringement of fundamental rights enshrined in part III of the Constitution.
21. The instant writ petition has been filed with the prayer inter alia seeking direction to the respondents to absorb the services of the employees of U.P. Rajya Khanij Vikas Nigam on suitable posts in any of the Corporations under the control of the State Government or in any other department of the Government. It has also been prayed that the State of U.P. be directed to prepare a list of retrenched employees of various Corporations and absorb them in accordance with the length of their services. In alternative, it has been prayed that the State of U.P. and the Corporation be directed to pay the members of the petitioners-association compensation at the rate admissible under the provisions of Industrial Dispute Act, 1947 and additional wages at the rate of six years' salary to them, The petitioners have also prayed that this Hon'ble Court may be pleased to issue any other writ, order or directions which is deemed fit in the peculiar facts and circumstances of the case.
22. Since employees of the Corporation are still serving and the Corporation has not been closed as yet, the employees of the Corporation are entitled for the wages as Apex Court in a number of decisions has held that deprivation of subsistence allowance as well as the salary of an employee amounts to infringement of fundamental rights guaranted under Article 226 of the Constitution of India. The Hon'ble Supreme Court in Air India Statutory Corporation v. United Labour Union, reported in (1997) 9 SCC, 377, in paragraph 50 has observed the following : , "50. It would, thus, be seen that all essential facilities and opportunities to the poor people are fundamental means to development, to live with minimum comforts, food, shelter, clothing and health. Due to economic constraints, though right to work was not declared as a fundamental right, right to work of workman, lower class, middle class and poor people is a means to development and source to earn livelihood. Though, right to employment cannot , as a right, be claimed but after the appointment to a post or an office, be it under the State, its agency, instrumentality, juristic person or private enterpreneur, it is required to be dealt with as per public element and to act in public interest assuring equality, which is a genus of Article 14 and all other concomitant rights emanating therefrom are species to make their right to life and dignity of person real and meaningful. The democracy offers to everyone as a door, an exerter and developer and enjoyer of his human capacities, rather than merely as a consumer of utilities, as stated by Justice K.K. Mathew, in his the Right to Equality and Property under the Indian Constitution at pp. 47-48......."
23. The Apex Court further in D.K. Yadav v. J.M.A. Industries Ltd., reported in 1993 (3) SCC 259, has held that Article 21 includes right to livelihood.
24. In view of the aforesaid facts and the legal position, the application moved by the State for extension of time is hereby allowed and the State is directed to make complain of the order dated 4-8-99, passed by this Court within four months from today.
25. In view of the averments made in the affidavit filed in support of the application for extension of time on 3-12-99 and the undertaking given by Mr. Harbinder Raj Singh, Secretary to the State Government which is contained in the order dated 4-8-99 the writ petition deserves to be allowed.
26. In the result, the writ petition succeeds and a writ in the nature of mandamus is issued directing the opposite parties to pay salary to the employees of the petitioners-association within four months from today and to take necessary steps for their absorption in various organisations of the State Government/Public Sectors expeditiously. However, it will be open for the opposite parties to take necessary steps for the retrenchment of the employees of the petitioners-association keeping in view the resolution dated 19-12-1996 of the Board of. Directors of the Corporation.
27. Parties will bear their own costs.
OPINION OF THE BENCH M. Katju and U. K. Dhaon, JJ.
In view of difference of opinion between us, let the papers of this case be placed if possible today before Hon'ble the Chief Justice for constitution of an Appropriate Bench.