(1)
IFCI LTD. Vs.
SANJAY BEHARI AND OTHERS .....Respondent D.D
17/09/2019
Facts:Employees of IFCI opted for the Voluntary Retirement Scheme (VRS-2008).Ex-employees sought enhanced pension based on subsequent pay-scale revisions after their retirement.Issues:Whether ex-employees are entitled to enhanced pension post-retirement due to pay-scale revisions.Interpretation of the clauses within the VRS-2008 scheme.Held:VRS-2008 Clauses: The VRS-2008 clearly outlined a full an...
(2)
D.A.V. COLLEGE TRUST AND MANAGEMENT SOCIETY AND OTHERS Appellant Vs.
DIRECTOR OF PUBLIC INSTRUCTIONS AND OTHERS .....Respondent
Sections, Acts, Rules, and Articles mentioned:
Section 2(h): Right to Information Act, 2005
Constitution of India
Subject:
Whether non-governmental organisations substantially financed by the appropriate government fall within the ambit of 'public authority' under Section 2(h) of the Right to Information Act, 2005.
Headnotes:
Facts:
The case involved the interpretation of Section 2(h) of the Right to Information Act, 2005.
Appellants, colleges and associations, contended that NGOs were not covered under the Act, and the Act intended to cover only government and its instrumentalities.
The key question was whether non-governmental organizations substantially financed by the appropriate government could be considered a 'public authority' under the Act.
Issues:
Whether NGOs substantially financed by the appropriate government fall within the definition of 'public authority' under Section 2(h) of the Right to Information Act, 2005.
Held:
The Court analyzed Section 2(h) carefully, distinguishing between the first and second parts of the definition.The first part covers authorities, bodies, or institutions of self-government established or constituted in specific ways, while the second part includes bodies owned, controlled, or substantially financed by the appropriate government and non-governmental organizations substantially financed by the government.The inclusive clause in the second part expands the definition, indicating Parliament's intention to cover bodies beyond the four categories mentioned in clauses (a) to (d).( Para 16)
The Court held that an NGO substantially financed, directly or indirectly, by funds provided by the appropriate government would be a public authority under the Act.( Para 22)
'Substantial' was interpreted to mean a large portion, not necessarily more than 50%.The determination of substantial finance is a question of fact, considering both direct and indirect financing, evaluating the value of benefits such as land provided at discounted rates.( Para 27)
Whether an NGO is substantially financed is a factual question, considering if the organization can effectively carry out its activities without government financing.The Act's purpose is to bring transparency and probity in public dealings, justifying citizens' right to inquire about the use of government funds by NGOs.( Para 28)
Decision: Civil Appeal No. 9828 of 2013 was dismissed.Civil Appeal Nos. 9844-9845 of 2013, 9846-9857 of 2013, and 9860 of 2013 were remitted to the High Court for determining whether the institutions are substantially financed or not.High Court to consider writ petitions filed in 2013, giving priority to the matter.
Referred Cases:
Abhiram Singh vs. C.D. Commachen (Dead) by L.Rs. and Ors, (2017) 2 SCC 629
Bharat Coop. Bank (Mumbai) Ltd. vs. Coop. Bank Employees Union, (2007) 4 SCC 685
Delhi Development Authority vs. Bhola Nath Sharma (Dead) by L.Rs. and Ors, (2011) 2 SCC 54
New India Assurance Company Ltd. vs. Nusli Neville Wadia and Anr, (2008) 3 SCC 279
P. Kasilingam vs. P.S.G. College of Technology & Ors, (1995) Supp 2 SCC 348
Thalappalam Service Cooperative Bank Ltd. and Ors. vs. State of Kerala and Ors, (2013) 16 SCC 82
JUDGMENT
Deepak Gupta, J. - Whether non-governmental organisations substantially financed by the appropriate government fall within the ambit of 'public authority' under Section 2(h) of the Right to Information Act, 2005 is the issue for consideration in this case.
2. The Right to Information Act (for short 'the Act') was enacted by Parliament in the year 2005, for the purpose of setting out a practical regime of right to information for citizens to secure access to information. The relevant portion of the Objects & Reasons of the Act reads as follows:-
"...AND WHEREAS democracy requires an informed citizenry and transparency of information which are vital to its functioning and also to contain corruption and to hold Governments and their instrumentalities accountable to the governed;
AND WHEREAS revelation of information in actual practice is likely to conflict with other public interests including efficient operations of the Governments, optimum use of limited fiscal resources and the preservation of confidentiality of sensitive information;
AND WHEREAS it is necessary to harmonise these conflicting interests while preserving the paramountcy of the democratic ideal;
3. Under the Act, a public authority is required to maintain records in terms of Chapter II and every citizen has the right to get information from the public authority. 'Public authority' is defined in Section 2(h) of the Act which reads as follows:-
"....
(h) "public authority" means any authority or body or institution of self-government established or constituted -
(a) by or under the Constitution;
(b) by any other law made by Parliament;
(c) by any other law made by State Legislature;
(d) by notification issued or order made by the appropriate Government,
and includes any -
(i) body owned, controlled or substantially financed;
(ii) non-Government organisation substantially financed, directly or indirectly by funds provided by the appropriate Government;"
4. The appellants before us are all colleges or associations running the colleges and/or schools and their claim is that Non-Governmental Organisations (NGOs) are not covered under the Act. According to the appellants, the objective of the Act was to cover only Government and its instrumentalities which are accountable to the Government. It has also been urged that the words 'public authority' mean any authority or body or institution of self-government and such body or institution must be constituted under the Constitution, or by any law of Parliament, or by any law made by the State Legislature or by a notification issued or order made by the appropriate Government.
5. It is urged that unless a specific notification is issued, in terms of clause (d), no body or institution outside the ambit of clauses (a) to (c) of Section 2(h) can be deemed to be public authority. It is further urged that there are 4 types of public authorities as pointed out above, i.e., those set up (a) under the Constitution, (b) by an Act of Parliament, (c) by any law made by State Legislature, or (d) by notification issued or order made by the appropriate Government. No other authority can be considered a public authority. Since the appellants do not fall under any of the above mentioned 4 categories, they cannot be termed to be public authority.
6. As far as definition of public authority is concerned this Court has dealt with the matter in detail in Thalappalam Service Cooperative Bank Ltd. and Ors. vs. State of Kerala and Ors, (2013) 16 SCC 82 It would however, be pertinent to mention that in that case the Registrar of Cooperative Societies had issued a Circular No. 23 of 2006 directing that all cooperative societies would fall within the ambit of the Act. This notification was challenged before this Court. Dealing with Section 2(h) of the Act, this Court in the aforesaid judgment held as follows:-
"30. The legislature, in its wisdom, while defining the expression "public authority" under Section 2(h), intended to embrace only those categories, which are specifically included, unless the context of the Act otherwise requires. Section 2(h) has used the expressions "means" and "includes". When a word is defined to "mean" something, the definition is prima facie restrictive and where the word is defined to "include" some other thing, the definition is prima facie extensive. But when both the expressions "means" and "includes" are used, the categories mentioned there would exhaust themselves. The meanings of the expressions "means" and "includes" have been explained by this Court in DDA v. Bhola Nath Sharma (in paras 25 to 28). When such expressions are used, they may afford an exhaustive explanation of the meaning which for the purpose of the Act, must invariably be attached to those words and expressions.
31. Section 2(h) exhausts the categories mentioned therein. The former part of Section 2(h) deals with:
(1) an authority or body or institution of self-government established by or under the Constitution,
(2) an authority or body or institution of self-government established or constituted by any other law made by Parliament,
(3) an authority or body or institution of self-government established or constituted by any other law made by the State Legislature, and
(4) an authority or body or institution of self-government established or constituted by notification issued or order made by the appropriate Government.
32. The Societies, with which we are concerned, admittedly, do not fall in the abovementioned categories, because none of them is either a body or institution of self-government, established or constituted under the Constitution, by law made by Parliament, by law made by the State Legislature or by way of a notification issued or made by the appropriate Government. Let us now examine whether they fall in the latter part of Section 2(h) of the Act, which embraces within its fold:
(5) a body owned, controlled or substantially financed, directly or indirectly by funds provided by the appropriate Government,
(6) non-governmental organisations substantially financed directly or indirectly by funds provided by the appropriate Government."
7. At this stage we may note that in the Thalappalam case (supra) there was an order issued directing that cooperative societies would fall within the ambit of the Act. The validity of this order was challenged on the grounds that the cooperative societies were neither bodies owned, controlled and/or substantially financed by the government nor could they be said to be NGOs substantially financed, directly or indirectly, by funds provided by the appropriate Government.
8. It is a well settled statutory rule of interpretation that when in the definition clause a meaning is given to certain words then that meaning alone will have to be given to those words. However, when the definition clause contains the words 'means and includes' then both these words must be given the emphasis required and one word cannot override the other.
9. In P. Kasilingam vs. P.S.G. College of Technology & Ors, (1995) Supp 2 SCC 348, this Court was dealing with the expression 'means and includes', wherein Justice S.C. Agrawal observed as follows:-
"19. ...A particular expression is often defined by the Legislature by using the word 'means' or the word 'includes'. Sometimes the words 'means and includes' are used. The use of the word 'means' indicates that "definition is a hard-and-fast definition, and no other meaning can be assigned to the expression than is put down in definition". (See : Gough v. Gough; Punjab Land Development and Reclamation Corpn. Ltd. v. Presiding Officer, Labour Court.) The word 'includes' when used, enlarges the meaning of the expression defined so as to comprehend not only such things as they signify according to their natural import but also those things which the clause declares that they shall include. The words "means and includes", on the other hand, indicate "an exhaustive explanation of the meaning which, for the purposes of the Act, must invariably be attached to these words or expressions". (See : Dilworth v. Commissioner of Stamps (Lord Watson); Mahalakshmi Oil Mills v. State of A.P. The use of the words "means and includes" in Rule 2(b) would, therefore, suggest that the definition of 'college' is intended to be exhaustive and not extensive and would cover only the educational institutions falling in the categories specified in Rule 2(b) and other educational institutions are not comprehended. Insofar as engineering colleges are concerned, their exclusion may be for the reason that the opening and running of the private engineering colleges are controlled through the Board of Technical Education and Training and the Director of Technical Education in accordance with the directions issued by the AICTE from time to time..."
This judgment was followed in Bharat Coop. Bank (Mumbai) Ltd. vs. Coop. Bank Employees Union, (2007) 4 SCC 685 and Delhi Development Authority vs. Bhola Nath Sharma (Dead) by L.Rs. and Ors, (2011) 2 SCC 54.
10. It is thus clear that the word 'means' indicates that the definition is exhaustive and complete. It is a hard and fast definition and no other meaning can be given to it. On the other hand, the word 'includes' enlarges the scope of the expression. The word 'includes' is used to signify that beyond the meaning given in the definition clause, other matters may be included keeping in view the nature of the language and object of the provision. In P. Kasilingams case (supra) the words 'means and includes' has been used but in the present case the word 'means' has been used in the first part of sub-section (h) of Section 2 whereas the word 'includes' has been used in the second part of the said Section. They have not been used together.
11. One of the arguments raised before us is that the words "self-government" occurring in the opening portion of Section 2(h) will govern the words 'authority', 'body' or 'institution'. It is urged that only such authorities, bodies or institutions actually concerned with self-governance can be declared to be public authorities. This objection has to be rejected outright. There are three categories in the opening lines viz., (a) authorities; (b) bodies; and (c) institutions of self-government. There can be no doubt in this regard and, therefore, we reject this contention.
12. The next contention is that a public authority can only be an authority or body or institution which has been established or constituted (a) under the Constitution; (b) by any law of Parliament; (c) by any law of State Legislature or (d) by notification made by the appropriate Government. It is the contention of the appellants that only those authorities, bodies or institutions of self-government which fall in these four categories can be covered under the definition of public authority. It is also contended that in the Thalappalam case (supra) the Court did not consider the effect of clause (d) on the remaining portion of the definition.
13. On the other hand, on behalf of the respondents it is urged that the reading of Section 2(h) clearly shows that in addition to the four categories referred to in the first part, there is an inclusive portion which includes (i) body owned, controlled or substantially financed; (ii) non-Government organisation substantially financed, directly or indirectly by funds provided by the appropriate Government.
14. The D.D
17/09/2019
Facts:The case involved the interpretation of Section 2(h) of the Right to Information Act, 2005.Appellants, colleges and associations, contended that NGOs were not covered under the Act, and the Act intended to cover only government and its instrumentalities.The key question was whether non-governmental organizations substantially financed by the appropriate government could be considered a '...
(3)
SHRIRANG YADAVRAO WAGHMARE Vs.
STATE OF MAHARASHTRA AND OTHERS .....Respondent D.D
16/09/2019
Facts:Appellant, a Judicial Officer, dismissed for passing orders favoring a lady lawyer and her clients due to a proximate relationship.Suspension on 08.02.2001, dismissal on 15.01.2004.Appellant challenges dismissal in writ petition, dismissed by the High Court.Issues:Validity of the penalty imposed on the appellant.Interpretation of the term 'gratification' under Rule 5 of Maharashtra...
(4)
PUNJAB URBAN PLANNING AND DEVELOPMENT AUTHORITY (NOW GLADA) Vs.
VIDYA CHETAL AND RAM SINGH .....Respondent D.D
16/09/2019
Facts:The case involves a dispute over the imposition of "composition fee" and "extension fee" by the Punjab Urban Planning and Development Authority (GLADA).The reference arises from the doubt expressed by a two-Judge Bench regarding the correctness of the judgment in HUDA vs. Sunita (2005) 2 SCC 479.Issues:Whether the National Consumer Disputes Redressal Commission (NCDRC) ha...
(5)
STATE OF ODISHA AND ANOTHER Appellant Vs.
ANUP KUMAR SENAPATI AND ANOTHER .....Respondent D.D
16/09/2019
Facts:The case involves the claim for grant-in-aid benefits by employees under the Orissa (Non–Government Colleges, Junior Colleges, and Higher Secondary Schools) Grant-in-Aid Order, 1994, following its repeal in 2004 and subsequent orders.Issues:Whether grant-in-aid can be claimed as a matter of right after the completion of the prescribed period.The effect of the repeal of the Order of 1994 by...
(6)
UNION OF INDIA AND OTHERS Vs.
SANDEEP KUMAR ETC .....Respondent D.D
13/09/2019
Facts:The case involves the deputation of the 71 Armoured Regiment for T-90 Tanks conversion training at Pokhran Firing Range.Two pistols were reported missing at the conclusion of the conversion exercise, leading to charges of theft against the accused.Confessional statements played a pivotal role in the prosecution's case.Issues:The admissibility of confessional statements made by the accus...
(7)
THE BIHAR STATE HOUSING BOARD & ORS. Vs.
RADHA BALLABH HEALTH CARE AND RESEARCH INSTITUTE (P) LTD. .....Respondent D.D
13/09/2019
Facts:The Bihar State Housing Board (appellant) advertised the allotment of a health center plot and invited applications.The respondent applied but was not allotted a plot initially.Legal proceedings ensued, leading to discussions on alternative plots and issues surrounding the allotment process.Issues:The right of the respondent to plot allotment.The legality of offering alternative plots withou...
(8)
JOSE PAULO COUTINHO Vs.
MARIA LUIZA VALENTINA PEREIRA AND ANOTHER .....Respondent D.D
13/09/2019
Facts: The Portuguese Civil Code, originating from foreign law, became applicable to the domiciles of Goa through the Goa, Daman and Diu (Administration) Ordinance, 1962, and the Goa, Daman and Diu (Administration) Act, 1962.Issues: The status of the Portuguese Civil Code in Goa, the applicability of principles of private international law, and the scope of inheritance laws for Goan domiciles, esp...
(9)
GENERAL MANAGER, ELECTRICAL RENGALI HYDRO ELECTRIC PROJECT, ORISSA AND OTHERS Vs.
SRI GIRIDHARI SAHU AND OTHERS .....Respondent D.D
12/09/2019
Facts: During the proceedings, NMR workers claimed that they were coerced into signing papers related to a VSS, leading to their alleged wrongful termination. The Labour Court ordered their reinstatement, but the employer appealed.Issues: The allegations of fraud and undue influence in the implementation of the VSS. The adequacy of pleading and evidence related to these allegations were pivotal.He...