Page 1 REPORTABLE

IN THE SUPREMECOURT OF INDIA

CIVIL APPELLATE JURISDICTION

CIVIL APPEAL NO. 7728 OF 2012

Ayaaubkhan Noorkhan Pathan … Appellant

Versus

The State of Maharashtra & Ors. … Respondents

J U D G M E N T

DR. B.S. CHAUHAN, J.:

1.This appeal has been preferred against the impugned judgment

and order dated 22.9.2009, passed by the High Court of Bombay

(Aurangabad Bench) in Writ Petition No.3129 of 2009, filed by

respondent no.5, challenging the caste certificate of the appellant.

2.The facts and circumstances giving rise to this appeal are as

follows:

A.The competent authority in the present case, issued a caste

certificate dated 19.10.1989, after following due procedure, in favour

of the appellant stating that he does in fact, belong to Bhil Tadvi

Page 2 (Scheduled Tribes). On the basis of the said certificate, the appellant

was appointed as Senior Clerk in the Municipal Corporation of

Aurangabad (hereinafter referred to as the, ‘Corporation’) on

6.2.1990, against the vacancy reserved for persons under the

Scheduled Tribes category. The Corporation referred the caste

certificate of the appellant for the purpose of verification, to the Caste

Certificate Scrutiny Committee (hereinafter referred to as the,

“Scrutiny Committee”). The Vigilance Cell attached to the Scrutiny

Committee, upon conducting vigilance enquiry, vide order dated

29.12.1998, found that the appellant did, in fact, belong to Bhil Tadvi

(Scheduled Tribes) and thus, the said certificate was verified. The

Scrutiny Committee, on the basis of the said report and also other

documents filed by the appellant in support of his case, issued a

validity certificate, dated 23.5.2000 to the appellant belonging to Bhil

Tadvi (Scheduled Tribes). After the lapse of a period of 9 years,

respondent no.5 filed complaint dated 9.1.2009, through an advocate

before the Scrutiny Committee, for the purpose of recalling the said

validity certificate, on the ground that the appellant had obtained

employment by way of misrepresentation, and that he does not

actually belong to the Scheduled Tribes category. In fact, the

2

Page 3 appellant professed the religion of Islam and therefore, could not be a

Scheduled Tribe.

B.The Scrutiny Committee rejected the said application vide order

dated 13.3.2009, observing that it had no power to recall or to review

a caste validity certificate, as there is no statutory provision that

provides for the same.

C.Aggrieved, respondent no.5 challenged the order dated

13.3.2009, by filing Writ Petition No.3129 of 2009 before the High

Court of Bombay (Aurangabad Bench), praying for quashing of the

order dated 13.3.2009, and directing the Scrutiny Committee to hold

de novo enquiry, with respect to the appellant’s caste certificate. The

appellant contested the said petition, denying all the allegations made

by respondent no.5. Vide its impugned judgment and order dated

22.9.2009, the High Court disposed of the said writ petition without

going into the merits of the case. However, while doing so, the High

Court set aside the order dated 13.3.2009, and remitted the matter to

the Scrutiny Committee, directing it to hear all the parties concerned

in accordance with law, as regards the allegations made by respondent

3

Page 4 no.5 in the complaint. It further directed the Committee to decide the

said matter within a period of 6 months.

Hence, this present appeal.

3.Before proceeding further, it may also be pertinent to refer to

certain subsequent developments.

During the pendency of this appeal, this Court vide order dated

20.11.2009, granted a stay with respect to the operation of the

aforementioned impugned judgment. Vide order dated 6.1.2012, the

said interim order was modified, to the extent that the Scrutiny

Committee would re-examine the case on merit, without being

influenced by earlier proceedings before it, and by giving adequate

opportunity to the parties to lead evidence in support of their

respective cases after which, the Scrutiny Committee would submit its

report to this Court within a period of 3 months.

4.Shri A.V. Savant, learned Senior counsel, appearing for the

appellant has submitted that respondent no.5 does not belong to any

reserved category, infact, he belongs to the General category, and

hence, he has no right or locus standi, to challenge the appellant’s

certificate. Thus, the High Court committed an error by directing the

4

Page 5 Scrutiny Committee to entertain the complaint filed by respondent

no.5. It has further been submitted that, despite the directions given

by this Court, the Scrutiny Committee failed to ensure compliance

with the principles of natural justice, as the appellant was denied the

opportunity to cross-examine witnesses, and no order was passed with

respect to his application for recalling such witnesses for the purpose

of cross-examination, which has no doubt, resulted in the grave

miscarriage of justice. The affidavit filed by the Scrutiny Committee

did not clarify, or make any specific statement with respect to whether

or not the appellant was permitted to cross-examine witnesses. It

further, did not clarify whether the application dated 28.2.2012, filed

by the appellant to re-call witnesses for the purpose of cross-

examination, has been disposed of. Moreover, the procedure adopted

by the Scrutiny Committee is in contravention of the statutory

requirements, as have been specified under the Maharashtra

Scheduled Castes, Scheduled Tribes, De-Notified Tribes, (Vimukta

Jatis), Nomadic Tribes, Other Backward Category (Regulation of

Issuance and Verification of) Caste Certificate Act, 2000

(Maharashtra Act No. XXIII of 2001 (hereinafter referred to as the,

`Act 2001’), and the Rules, 2003 which are framed under the Act

5

Page 6 2001 and therefore, all proceedings hereby stand vitiated. The

appellant placed reliance upon several documents which are all very

old and therefore, their authenticity should not have been doubted.

The earlier report submitted by the Vigilance Cell dated 29.12.1998,

clearly stated that the traits and characteristics of the appellant’s

family, matched with those of Bhil Tadvi (Scheduled Tribes). The

action of respondent no.5 is therefore, completely malifide and is

intended, solely to harass the appellant, and the High Court committed

grave error in not deciding the issue related to the locus standi of

respondent no.5 in relation to him filing a complaint in the first place,

as the said issue was specifically raised by the appellant. Therefore,

the present appeal deserves to be allowed.

5.Per contra, Shri Shankar Chillarge, learned counsel appearing

for the Scrutiny Committee, has made elaborate submissions, in

support of the impugned judgment and subsequent proceedings. Mr.

Udaya Kumar Sagar and Ms. Bina Madhavan, learned counsel

appearing for respondent no.5, have also supported the impugned

judgment of the High Court and has further submitted that even

though respondent no.5, does not belong to the Scheduled Tribes

category, he most certainly could file a complaint against the

6

Page 7 appellant, at such a belated stage, as the appellant had obtained

employment in 1989, by way of mis-representation and fraud.

Respondent no.5, being a public spirited person has espoused the

cause of the real persons who have been deprived of their right to be

considered for the said post occupied by the appellant. Respondent

No. 5 has also filed affidavits of relevant persons before the Scrutiny

Committee, to prove his allegations. Thus, the present appeal lacks

merit and is liable to be dismissed.

6.We have considered the rival submissions made by learned

counsel for the parties and perused the record.

Person aggrieved :

7.It is a settled legal proposition that a stranger cannot be

permitted to meddle in any proceeding, unless he satisfies the

Authority/Court, that he falls within the category of aggrieved

persons.

Only a person who has suffered, or suffers from legal

injury can challenge the act/action/order etc. in a court of law. A writ

petition under Article 226 of the Constitution is maintainable either

for the purpose of enforcing a statutory or legal right, or when there is

7

Page 8 a complaint by the appellant that there has been a breach of statutory

duty on the part of the Authorities. Therefore, there must be a

judicially enforceable right available for enforcement, on the basis of

which writ jurisdiction is resorted to. The Court can of course, enforce

the performance of a statutory duty by a public body, using its writ

jurisdiction at the behest of a person, provided that such person

satisfies the Court that he has a legal right to insist on such

performance. The existence of such right is a condition precedent for

invoking the writ jurisdiction of the courts. It is implicit in the

exercise of such extraordinary jurisdiction that, the relief prayed for

must be one to enforce a legal right. Infact, the existence of such

right, is the foundation of the exercise of the said jurisdiction by

the Court. The legal right that can be enforced must ordinarily be

the right of the appellant himself, who complains of infraction of such

right and approaches the Court for relief as regards the same. (Vide :

State of Orissa v. Madan Gopal Rungta, AIR 1952 SC 12; Saghir

Ahmad & Anr. v. State of U.P., AIR 1954 SC 728; Calcutta Gas

Company (Proprietary) Ltd. v. State of West Bengal & Ors., AIR

1962 SC 1044; Rajendra Singh v. State of Madhya Pradesh, AIR

8

Page 9 1996 SC 2736; and Tamilnad Mercantile Bank Shareholders Welfare

Association (2) v. S.C. Sekar & Ors., (2009) 2 SCC 784).

8. A “legal right”, means an entitlement arising out of legal

rules. Thus, it may be defined as an advantage, or a benefit conferred

upon a person by the rule of law. The expression, “person aggrieved”

does not include a person who suffers from a psychological or an

imaginary injury; a person aggrieved must therefore, necessarily be

one, whose right or interest has been adversely affected or

jeopardised. (Vide: Shanti Kumar R. Chanji v. Home Insurance

Co. of New York, AIR 1974 SC 1719; and State of Rajasthan &

Ors. v. Union of India & Ors., AIR 1977 SC 1361).

9. In Anand Sharadchandra Oka v. University of

Mumbai, AIR 2008 SC 1289, a similar view was taken by this Court,

observing that, if a person claiming relief is not eligible as per

requirement, then he cannot be said to be a person aggrieved

regarding the election or the selection of other persons.

10.In A. Subhash Babu v. State of A. P., AIR 2011 SC 3031, this

Court held:

9

Page 10 “The expression ‘aggrieved person’ denotes an

elastic and an elusive concept. It cannot be

confined within the bounds of a rigid, exact and

comprehensive definition. Its scope and

meaning depends on diverse, variable factors

such as the content and intent of the statute of

which contravention is alleged, the specific

circumstances of the case, the nature and

extent of complainant's interest and the nature

and the extent of the prejudice or injury

suffered by the complainant.”

11.This Court, even as regards the filing of a habeas corpus

petition, has explained that the expression, ‘next friend’ means a

person who is not a total stranger. Such a petition cannot be filed by

one who is a complete stranger to the person who is in alleged illegal

custody. (Vide: Charanjit Lal Chowdhury v. The Union of India

& Ors., AIR 1951 SC 41; Sunil Batra (II) v. Delhi Administration,

AIR 1980 SC 1579; Mrs. Neelima Priyadarshini v. State of Bihar,

AIR 1987 SC 2021; Simranjit Singh Mann v. Union of India, AIR

1993 SC 280; Karamjeet Singh v. Union of India, AIR 1993 SC

284; and Kishore Samrite v. State of U.P. & Ors., JT (2012) 10 SC

393).

12. This Court has consistently cautioned the courts against

entertaining public interest litigation filed by unscrupulous persons, as

such meddlers do not hesitate to abuse the process of the court. The

1

Page 11 right of effective access to justice, which has emerged with the new

social rights regime, must be used to serve basic human rights, which

purport to guarantee legal rights and, therefore, a workable remedy

within the framework of the judicial system must be provided.

Whenever any public interest is invoked, the court must examine the

case to ensure that there is in fact, genuine public interest involved.

The court must maintain strict vigilance to ensure that there is no

abuse of the process of court and that, “ordinarily meddlesome

bystanders are not granted a Visa”. Many societal pollutants create

new problems of non-redressed grievances, and the court should make

an earnest endeavour to take up those cases, where the subjective

purpose of the lis justifies the need for it. (Vide: P.S.R.

Sadhanantham v. Arunachalam & Anr., AIR 1980 SC 856; Dalip

Singh v. State of U.P. & Ors., (2010) 2 SCC 114; State of

Uttaranchal v. Balwant Singh Chaufal & Ors., (2010) 3 SCC 402;

and Amar Singh v. Union of India & Ors., (2011) 7 SCC 69)

13. Even as regards the filing of a Public Interest Litigation,

this Court has consistently held that such a course of action is not

permissible so far as service matters are concerned. (Vide: Dr.

Duryodhan Sahu & Ors. v. Jitendra Kumar Mishra & Ors., AIR

1

Page 12 1999 SC 114; Dattaraj Natthuji Thaware v. State of Maharashtra,

AIR 2005 SC 540; and Neetu v. State of Punjab & Ors., AIR 2007 SC

758)

14. In Ghulam Qadir v. Special Tribunal & Ors., (2002) 1

SCC 33, this Court considered a similar issue and observed as under:–

“There is no dispute regarding the legal

proposition that the rights under Article 226 of

the Constitution of India can be enforced only

by an aggrieved person except in the case

where the writ prayed for is for habeas corpus

or quo warranto. Another exception in the

general rule is the filing of a writ petition in

public interest. The existence of the legal right

of the petitioner which is alleged to have been

violated is the foundation for invoking the

jurisdiction of the High Court under the

aforesaid article. The orthodox rule of

interpretation regarding the locus standi of a

person to reach the Court has undergone a

sea change with the development of

constitutional law in our country and the

constitutional Courts have been adopting a

liberal approach in dealing with the cases or

dislodging the claim of a litigant merely on

hyper-technical grounds.--------In other words,

if the person is found to be not merely a

stranger having no right whatsoever to any

post or property, he cannot be non-suited on

the ground of his not having the locus standi.”

(Emphasis added)

1

Page 13 15.In view of the above, the law on the said point can be summarised

to the effect that a person who raises a grievance, must show how he has

suffered legal injury. Generally, a stranger having no right whatsoever to

any post or property, cannot be permitted to intervene in the affairs of

others.

Locus standi of respondent no.5 :

16.As respondent no.5 does not belong to the Scheduled Tribes

category, the garb adopted by him, of serving the cause of Scheduled

Tribes candidates who might have been deprived of their legitimate right

to be considered for the post, must be considered by this Court in order

to determine whether respondent no. 5, is in fact, in a legitimate position

to lay any claim before any forum, whatsoever.

17.This Court in Ravi Yashwant Bhoir v. District Collector,

Raigad & Ors., (2012) 4 SCC 407, held as under:

“Shri Chintaman Raghunath Gharat, ex-

President was the complainant, thus, at the

most, he could lead evidence as a witness. He

could not claim the status of an adversarial

litigant. The complainant cannot be the party to

the lis. A legal right is an averment of

entitlement arising out of law. In fact, it is a

benefit conferred upon a person by the rule of

law. Thus, a person who suffers from legal

1

Page 14 injury can only challenge the act or omission.

There may be some harm or loss that may not

be wrongful in the eye of the law because it

may not result in injury to a legal right or

legally protected interest of the complainant

but juridically harm of this description is called

damnum sine injuria.

The complainant has to establish that he has

been deprived of or denied of a legal right and

he has sustained injury to any legally protected

interest. In case he has no legal peg for a

justiciable claim to hang on, he cannot be

heard as a party in a lis. A fanciful or

sentimental grievance may not be sufficient to

confer a locus standi to sue upon the

individual. There must be injuria or a legal

grievance which can be appreciated and not a

stat pro ratione voluntas reasons i.e. a claim

devoid of reasons.

Under the garb of being a necessary party, a

person cannot be permitted to make a case as

that of general public interest. A person having

a remote interest cannot be permitted to

become a party in the lis, as the person who

wants to become a party in a case, has to

establish that he has a proprietary right which

has been or is threatened to be violated, for the

reason that a legal injury creates a remedial

right in the injured person. A person cannot be

heard as a party unless he answers the

description of aggrieved party.”

18.A similar view has been re-iterated by this Court in K.

Manjusree v. State of Andhra Pradesh & Anr., (2008) 3 SCC 512,

wherein it was held that, the applicant before the High Court could not

1

Page 15 challenge the appointment of a person as she was in no way aggrieved,

for she herself could not have been selected by adopting either method.

Morever, the appointment cannot be challenged at a belated stage and,

hence, the petition should have been rejected by the High Court, on the

grounds of delay and non-maintainability, alone.

19.In Balbir Kaur & Anr. v. Uttar Pradesh Secondary Education

Services Selection Board, Allahabad & Ors., (2008) 12 SCC 1, it has

been held that a violation of the equality clauses, enshrined in Articles

14 and 16 of the Constitution, or discrimination in any form, can be

alleged, provided that, the writ petitioner demonstrates a certain

appreciable disadvantage qua other similarly situated persons.

20.While dealing with the similar issue, this Court in Raju

Ramsingh Vasave v. Mahesh Deorao Bhiavapurkar & Ors., (2008)

9 SCC 54 held:

“We must now deal with the question of locus

standi. A special leave petition ordinarily

would not have been entertained at the instance

of the appellant. Validity of appointment or

otherwise on the basis of a caste certificate

granted by a committee is ordinarily a matter

between the employer and the employee. This

Court, however, when a question is raised, can

take cognizance of a matter of such grave

importance suo motu. It may not treat the

1

Page 16 special leave petition as a public interest

litigation, but, as a public law litigation. It is,

in a proceeding of that nature, permissible for

the court to make a detailed enquiry with

regard to the broader aspects of the matter

although it was initiated at the instance of a

person having a private interest. A deeper

scrutiny can be made so as to enable the court

to find out as to whether a party to a lis is

guilty of commission of fraud on the

Constitution. If such an enquiry subserves the

greater public interest and has a far-reaching

effect on the society, in our opinion, this Court

will not shirk its responsibilities from doing

so.”

(See also: Manohar Joshi v. State of Maharashtra & Ors., (2012) 3

SCC 619)

21.In Vinoy Kumar v. State of U.P., AIR 2001 SC 1739, this Court

held:

“Even in cases filed in public interest, the court

can exercise the writ jurisdiction at the instance

of a third party only when it is shown that the

legal wrong or legal injury or illegal burden is

threatened and such person or determined class

of person is by reason of poverty, helplessness or

disability or socially or economically

disadvantaged position, unable to approach the

court for relief.”

22.Thus, from the above it is evident that under ordinary

circumstances, a third person, having no concern with the case at hand,

1

Page 17 cannot claim to have any locus-standi to raise any grievance

whatsoever. However, in the exceptional circumstances as referred to

above, if the actual persons aggrieved, because of ignorance, illiteracy,

inarticulation or poverty, are unable to approach the court, and a person,

who has no personal agenda, or object, in relation to which, he can grind

his own axe, approaches the court, then the court may examine the issue

and in exceptional circumstances, even if his bonafides are doubted, but

the issue raised by him, in the opinion of the court, requires

consideration, the court may proceed suo-motu, in such respect.

Cross-examination is one part of the principles of natural justice:

23.A Constitution Bench of this Court in State of M.P. v.

Chintaman Sadashiva Vaishampayan, AIR 1961 SC 1623, held that

the rules of natural justice, require that a party must be given the

opportunity to adduce all relevant evidence upon which he relies, and

further that, the evidence of the opposite party should be taken in his

presence, and that he should be given the opportunity of cross-

examining the witnesses examined by that party. Not providing the said

opportunity to cross-examine witnesses, would violate the principles of

natural justice. (See also: Union of India v.T.R. Varma, AIR 1957 SC

1

Page 18 882; Meenglas Tea Estate v. Workmen, AIR 1963 SC 1719; M/s.

Kesoram Cotton Mills Ltd. v. Gangadhar & Ors., AIR 1964 SC 708;

New India Assurance Company Ltd . v . Nusli Neville Wadia and

Anr., AIR 2008 SC 876; Rachpal Singh & Ors. v. Gurmit Singh &

Ors., AIR 2009 SC 2448; Biecco Lawrie & Anr. v. State of West

Bengal & Anr., AIR 2010 SC 142; and State of Uttar Pradesh v.

Saroj Kumar Sinha, AIR 2010 SC 3131).

24. In Lakshman Exports Ltd. v. Collector of Central Excise,

(2005) 10 SCC 634, this Court, while dealing with a case under the

Central Excise Act, 1944, considered a similar issue i.e. permission with

respect to the cross-examination of a witness. In the said case, the

assessee had specifically asked to be allowed to cross-examine the

representatives of the firms concern, to establish that the goods in

question had been accounted for in their books of accounts, and that

excise duty had been paid. The Court held that such a request could not

be turned down, as the denial of the right to cross-examine, would

amount to a denial of the right to be heard i.e. audi alteram partem.

25.In New India Assurance Company Ltd., v. Nusli Neville

Wadia & Anr., AIR 2008 SC 876; this Court considered a case under

1

Page 19 the Public Premises ( Eviction of Unauthorised Occupants) Act, 1971

and held as follows :-

“If some facts are to be proved by the landlord,

indisputably the occupant should get an

opportunity to cross-examine. The witness who

intends to prove the said fact has the right to

cross-examine the witness. This may not be

provided by under the statute, but it being a part

of the principle of natural justice should be held

to be indefeasible right.” (Emphasis added)

In view of the above, we are of the considered opinion that the

right of cross-examination is an integral part of the principles of natural

justice.

26.In K.L. Tripathi v. State Bank of India & Ors., AIR 1984 SC

273, this Court held that, in order to sustain a complaint of the

violation of the principles of natural justice on the ground of absence

of opportunity of cross-examination, it must be established that some

prejudice has been caused to the appellant by the procedure followed.

A party, who does not want to controvert the veracity of the evidence

on record, or of the testimony gathered behind his back, cannot expect

to succeed in any subsequent grievance raised by him, stating that no

opportunity of cross-examination was provided to him, specially when

the same was not requested, and there was no dispute regarding the

1

Page 20 veracity of the statement. (See also: Union of India v. P.K. Roy, AIR

1968 SC 850; and Channabasappa Basappa Happali v. State of

Mysore, AIR 1972 SC 32).

27.In Transmission Corpn. of A.P. Ltd. v. Sri Rama Krishna

Rice Mill, AIR 2006 SC 1445, this Court held:

“In order to establish that the cross-

examination is necessary, the consumer has to

make out a case for the same. Merely stating

that the statement of an officer is being utilised

for the purpose of adjudication would not be

sufficient in all cases. If an application is made

requesting for grant of an opportunity to cross-

examine any official, the same has to be

considered by the adjudicating authority who

shall have to either grant the request or pass a

reasoned order if he chooses to reject the

application. In that event an adjudication being

concluded, it shall be certainly open to the

consumer to establish before the Appellate

Authority as to how he has been prejudiced by

the refusal to grant an opportunity to cross-

examine any official”.

28.The meaning of providing a reasonable opportunity to show

cause against an action proposed to be taken by the government, is

that the government servant is afforded a reasonable opportunity to

defend himself against the charges, on the basis of which an inquiry is

held. The government servant should be given an opportunity to deny

2

Page 21 his guilt and establish his innocence. He can do so only when he is

told what the charges against him are. He can therefore, do so by

cross-examining the witnesses produced against him. The object of

supplying statements is that, the government servant will be able to

refer to the previous statements of the witnesses proposed to be

examined against him. Unless the said statements are provided to the

government servant, he will not be able to conduct an effective and

useful cross-examination.

29.In Rajiv Arora v. Union of India & Ors., AIR 2009 SC 1100,

this Court held:

“Effective cross-examination could have been

done as regards the correctness or otherwise of

the report, if the contents of them were proved.

The principles analogous to the provisions of

the Indian Evidence Act as also

the principles of natural justice demand that

the maker of the report should be examined,

save and except in cases where the facts are

admitted or the witnesses are not available

for cross-examination or similar situation. The

High Court in its impugned judgment

proceeded to consider the issue on a technical

plea, namely, no prejudice has been caused to

the appellant by such non-examination. If the

basic principles of law have not been complied

with or there has been a gross violation of

the principles of natural justice, the High Court

should have exercised its jurisdiction of

judicial review.”

2

Page 22 30.The aforesaid discussion makes it evident that, not only should

the opportunity of cross-examination be made available, but it should be

one of effective cross-examination, so as to meet the requirement of the

principles of natural justice. In the absence of such an opportunity, it

cannot be held that the matter has been decided in accordance with law,

as cross-examination is an integral part and parcel of the principles of

natural justice.

31.Affidavit - whether evidence within the meaning of Section 3

of the Evidence Act, 1872:

It is a settled legal proposition that an affidavit is not evidence

within the meaning of Section 3 of the Indian Evidence Act, 1872

(hereinafter referred to as the ‘Evidence Act’).

Affidavits are therefore, not included within the purview of the

definition of "evidence" as has been given in Section 3 of the

Evidence Act, and the same can be used as "evidence" only if, for

sufficient reasons, the Court passes an order under Order XIX of the

Code of Civil Procedure, 1908 (hereinafter referred to as the ‘CPC’).

Thus, the filing of an affidavit of one’s own statement, in one’s own

favour, cannot be regarded as sufficient evidence for any Court or

2

Page 23 Tribunal, on the basis of which it can come to a conclusion as regards

a particular fact-situation. (Vide: Sudha Devi v. M.P. Narayanan &

Ors., AIR 1988 SC 1381; and Range Forest Officer v. S.T.

Hadimani, AIR 2002 SC 1147).

32.While examining a case under the provisions of the Industrial

Disputes Act, 1947, this Court, in M/s Bareilly Electricity Supply Co.

Ltd. v. The Workmen & Ors., AIR 1972 SC 330, considered the

application of Order XIX, Rules 1 and 2 CPC, and observed as under:-

"But the application of principles of natural

justice does not imply that what is not evidence,

can be acted upon. On the other hand, what it

means is that no material can be relied upon to

establish a contested fact which are not spoken to

by the persons who are competent to speak about

them and are subject to cross-examination by the

party against whom they are sought to be used.

When a document is produced in a Court or a

Tribunal, the question that naturally arises is: is

it a genuine document, what are its contents and

are the statements contained therein true...... If a

letter or other document is produced to establish

some fact which is relevant to the inquiry, the

writer must be produced or his affidavit in

respect thereof be filed and opportunity afforded

to the opposite party who challenges this fact.

This is both in accordance with the principles of

natural justice as also according to the

procedure under O. 19 of the Code and the

Evidence Act, both of which incorporate the

general principles."

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Page 24 33.In Needle Industries (India) Ltd. & Ors. v. N.I.N.I.H. Ltd. &

Ors., AIR 1981 SC 1298, this Court considered a case under the Indian

Companies Act, and observed that, “it is generally unsatisfactory to

record a finding involving grave consequences with respect to a person,

on the basis of affidavits and documents alone, without asking that

person to submit to cross-examination”. However, the conduct of the

parties may be an important factor, with regard to determining whether

they showed their willingness to get the said issue determined on the

basis of affidavits, correspondence and other documents, on the basis of

which proper and necessary inferences can safely and legitimately be

drawn.

34.In Ramesh Kumar v. Kesho Ram, AIR 1992 SC 700, this

Court considered the scope of application of the provisions of O. XIX,

Rr. 1 and 2 CPC in a Rent Control matter, observing as under:-

"The Court may also treat any affidavit filed in

support of the pleadings itself as one under the

said provisions and call upon the opposite side to

traverse it. The Court, if it finds that having

regard to the nature of the allegations, it is

necessary to record oral evidence tested by oral

cross-examination, may have recourse to that

procedure."

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Page 25 35.In Standard Chartered Bank v. Andhra Bank Financial

Services Ltd. & Ors., (2006) 6 SCC 94, this Court while dealing with a

case under the provisions of Companies Act, 1956, while considering

complex issues regarding the Markets, Exchanges and Securities, and

the procedure to be followed by special Tribunals, held as under :

“While it may be true that the Special Court has

been given a certain amount of latitude in the

matter of procedure, it surely cannot fly away

from established legal principles while deciding

the cases before it. As to what inference arises

from a document, is always a matter of evidence

unless the document is self-explanatory…….In

the absence of any such explanation, it was not

open to the Special Court to come up with its

own explanations and decide the fate of the suit

on the basis of its inference based on such

assumed explanations.”

36.Therefore, affidavits in the light of the aforesaid discussion are

not considered to be evidence, within the meaning of Section 3 of the

Evidence Act. However, in a case where the deponent is available for

cross-examination, and opportunity is given to the other side to cross-

examine him, the same can be relied upon. Such view, stands fully

affirmed particularly, in view of the amended provisions of Order XVIII,

Rules 4 & 5 CPC. In certain other circumstances, in order to avoid

technicalities of procedure, the legislature, or a court/tribunal, can even

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Page 26 lay down a procedure to meet the requirement of compliance with the

principles of natural justice, and thus, the case will be examined in the

light of those statutory rules etc. as framed by the aforementioned

authorities.

37.The instant case is required to be examined in the light of the

aforesaid legal propositions. This Court examined this matter in detail in

Km. Madhuri Patil v. Addl. Commissioner, Tribal Development,

(1994) 6 SCC 241, and upon realising that spurious tribes and persons

not belonging to the Scheduled Tribes category, were snatching away

the reservation benefits that have been made available to genuine tribals,

and that they were being wrongly deprived of their rights on the basis of

false caste certificates, and that further, at a subsequent stage such

unscrupulous persons, after getting admission/employment, were

adopting dilatory tactics, the court issued a large number of directions to

investigate such cases of false claims. The directions inter-alia included:

(1) Each Directorate should constitute a vigilance cell consisting of

Senior Deputy Superintendent of Police in over all charge and such

number of Police Inspectors to investigate into the social status

claims.

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Page 27 (2) The Director concerned, on receipt of the report from the

vigilance officer if he found the claim for social status to be “not

genuine’’ or “doubtful’’ or spurious or falsely or wrongly claimed, the

Director concerned should issue show cause notice supplying a copy

of the report of the vigilance officer to the candidate by a registered

post with acknowledgement due or through the head of the concerned

educational institution in which the candidate is studying or

employed........... After giving such opportunity either in person or

through counsel, the Committee may make such inquiry as it deems

expedient and consider the claims vis-a-vis the objections raised by

the candidate or opponent and pass an appropriate order with brief

reasons in support thereof.

(3) In case the report is in favour of the candidate and found to be

genuine and true, no further action need be taken except where the

report or the particulars given are procured or found to be false or

fraudulently obtained and in the latter event the same procedure as is

envisaged in para 6 be followed.

(4) The inquiry should be completed as expeditiously as possible

preferably by day-to-day proceedings within such period not

exceeding two months. If after inquiry, the caste Scrutiny Committee

finds the claim to be false or spurious, they should pass an order

cancelling the certificate issued and confiscate the same. It should

communicate within one month from the date of the conclusion of the

proceedings the result of enquiry to the parent/guardian and the

applicant.

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Page 28 (5) In case, the certificate obtained or social status claimed is found

to be false, the parent/guardian/the candidate should be prosecuted for

making false claim. If the prosecution ends in a conviction and

sentence of the accused, it could be regarded as an offence involving

moral turpitude, disqualification for elective posts or offices under the

State or the Union or elections to any local body, legislature or the

Parliament.

(6) As soon as the finding is recorded by the Scrutiny Committee

holding that the certificate obtained was false, on its cancellation and

confiscation simultaneously, it should be communicated to the

concerned educational institution or the appointing authority by

registered post with acknowledgement due with a request to cancel the

admission or the appointment. The principal etc. of the educational

institution responsible for making the admission or the appointing

authority, should cancel the admission/appointment without any

further notice to the candidate and debar the candidate for further

study or continue in office in a post.

The court further issued directions to all States to give effect to

the aforesaid directions, in order to ensure that the constitutional

objectives that were intended for the benefit and the advancement of

persons genuinely belonging to the Scheduled Castes and Scheduled

Tribes category, are not defeated by such unscrupulous persons.

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Page 29 The Act 2000 and the Rules 2003 are based on the directions

issued by this Court in Km. Madhuri Patil (supra) as the same have

been incorporated therein.

38.The correctness of the said judgment in Km. Madhuri Patil

(supra), was doubted, and the matter was referred to and decided by a

larger bench of this Court in Daya Ram v. Sudhir Batham & Ors.,

(2012) 1 SCC 333, wherein, while deciding the various issues involved,

including the competence of this Court to legislate in this regard, it was

held as under:

“The scrutiny committee is not an adjudicating

authority like a Court or Tribunal, but an

administrative body which verifies the facts,

investigates into a specific claim (of caste

status) and ascertains whether the caste/tribal

status claimed is correct or not…...

Having regard to the scheme for verification

formulated by this Court in Madhuri Patil, the

scrutiny committees carry out verification of

caste certificates issued without prior enquiry,

as for example the caste certificates issued by

Tehsildars or other officers of the departments

of Revenue/Social Welfare/Tribal Welfare,

without any enquiry or on the basis of self-

affidavits about caste. If there were to be a

legislation governing or regulating grant of

caste certificates, and if caste certificates are

issued after due and proper inquiry, such

caste certificates will not call for verification

by the scrutiny committees. Madhuri Patil

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Page 30 provides for verification only to avoid false and

bogus claims…..”

(Emphasis added)

39.Thus, it is evident from the aforesaid judgment in Daya Ram

(supra), that the purpose of issuing directions in Km. Madhuri Patil

(supra), was only to examine those cases, where caste certificates had

been issued without conducting any prior enquiry, on the basis of self-

affidavits regarding one’s caste alone, and that the said directions

were not at all applicable, where a legislation governing or regulating

the grant of caste certificates exists, and where caste certificates are

issued after due and proper enquiry. Caste certificates issued by

holding proper enquiry, in accordance with duly prescribed procedure,

would not require any further verification by the scrutiny committee.

40. In pursuance of the said order issued by the High Court, the

Scrutiny Committee examined the case of the parties. However, with

respect to this, the appellant raised the grievance that, the evidence of

a large number of persons had been recorded by the Scrutiny

Committee behind his back, and that he had not been given an

opportunity to cross-examine the witnesses that were examined by the

other side and therefore, he was unable to lead a proper defence. The

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Page 31 appellant filed an application dated 28.2.2012, for the purpose of

recalling 3 witnesses, namely, Sikandar Gulab Tadvi, Bhagchand

Ganpatsing Pardeshi and Bahadursing Mukhtarsing Patil, so that he

may cross-examine them. The appellant also filed another application

on the same day, seeking a period of 30 days time, to file his reply as

is required within the provisions of Rule 12(8) of the Rules 2003, and

also another application for the purpose of calling of records from the

office of the Tehsildar, to ascertain the genuineness of the certificate

impugned. None of the said applications have been decided till now.

41. In view thereof, this Court vide order dated 11.5.2012,

directed the learned counsel appearing for the Scrutiny Committee, to

produce the original record of the matter and to file an affidavit with

respect to whether the appellant had been given an opportunity to

cross-examine the witnesses that were examined by the other side, and

also with respect to whether the other applications filed by the

appellant, were decided upon.

42.In pursuance of the said order, the original record was

produced. However, the learned counsel remained unable to point out

from the original record, any proceeding or event, by way of which, it

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Page 32 could be ascertained that the appellant was in fact, given an

opportunity to cross-examine the witnesses, or to show that all the

said witnesses were examined in the presence of the appellant.

Further, he was also unable to satisfy this Court, with respect to the

circumstances under which, the applications filed by the appellant on

28.2.2012, including the one to recall witnesses and permit him to

cross-examine them, have been kept pending, without passing any

order in relation to either one of them.

43.In order to determine the genuineness and sincerity of

respondent no. 5, this Court on 29.10.2012 adjourned the matter until

5.11.2012, directing respondent no. 5 to act as under:

“Meanwhile, respondent No. 5 may file the

affidavit as on what date he appeared before

the Scrutiny Committee and what was the

material produced by him and as to whether on

that petitioner had a notice of his appearance

before the Scrutiny Committee and whether the

Committee has allowed the petitioner to cross

examine the respondent No. 5.”

In response to the said order, respondent no. 5 filed an affidavit

in Court on 5.11.2012. The contents of the affidavit reveal that

respondent no.5 claims that his occupation is that of a social worker.

The allegations against the appellant stating that he obtained the said

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Page 33 caste certificate fraudulently, have been repeated. Respondent no. 5

has not mentioned in the affidavit, the date on which he appeared

before the Scrutiny Committee, nor has he responded to the query

raised with respect to whether he had produced any evidence to

support his allegations, or whether the appellant was allowed to cross-

examine any of the witnesses, or if in fact, he simply examined all of

them himself.

The relevant part of the abovementioned affidavit, has been re-

produced hereunder:

“That it is submitted that on 28.2.2012 the

Respondent No. 5 submitted copy of Affidavit of

Mr. Supdu Musa Tadvi and by way of an

application prayed for personal presence of

Mr. Supdu Musa Tadvi. Scrutiny Committee

finding contradictions in the two statement of

Mr. Supdu Musa Tadvi, issued notice to him

requesting his personal presence on 17.3.2012.

However, Mr. Supdu Musa Tadri never

appeared before the Committee.”

44.The affidavit of Mr. Supdu Musa Tadri referred to hereinabove

cannot be relied upon, as the said deponent never appeared before the

Scrutiny Committee. The conduct of respondent no. 5, who has been

pursuing the said matter from one court to another, is found to be

reprehensible, and without any sense of responsibility whatsoever, as

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Page 34 he could not submit any satisfactory response to the directions issued

by this Court on 29.10.2012. In view of the above, we are highly

doubtful as regards his bonafides. He has therefore, disentitled

himself from appearing either before this Court, or any other court, or

Committee, so far as the instant case is concerned.

45.The Scrutiny Committee in ordinary circumstances examined

the matter and after investigation through its Vigilance Cell and

considering all the documentary evidence on record and after being

satisfied, granted the caste verification certificate in 2000. Section

114 Ill.(e) of the Evidence Act provided for the court to pronounce

that the decision taken by the Scrutiny Committee has been done in

regular course and the caste certificate has been issued after due

verification. A very strong material/evidence is required to rebut the

presumption. In fact, respondent no. 5 has no legal peg for a

justifiable claim to hang upon. Once the respondent no. 5, for the

reasons best known to him, had challenged caste certificate under the

garb of acting as a public spirited person espousing the cause of

legitimate persons who had been deprived of their right of being

considered for appointment, the respondent no. 5 must have acted

seriously and brought the material before the Scrutiny Committee to

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Page 35 show that the earlier decision was improbable or factually incorrect.

Such a view stands fortified by a catena of decisions rendered by this

Court where it has been held that presumption is based on legal

maxim “Omnia praesumuntur rite esse acta” i.e. all acts are

presumed to have rightly and regularly been done.

Such a presumption can be rebutted by adducing appropriate

evidence. Mere statement made in the written statement/petition is not

enough to rebut the presumption. The onus of rebuttal lies upon the

person who alleges that the act had not been regularly performed or

the procedure required under the law had not been followed. (Vide:

Gopal Narain v. State of U.P. & Anr., AIR 1964 SC 370; Narayan

Govind Gavate & Ors. v. State of Maharashtra & Ors., AIR 1977

SC 183; Karewwa & Ors.v. Hussensab Khansaheb Wajantri &

Ors., AIR 2002 SC 504; Engineering Kamgar Union v. Electro

Steels Castings Ltd. & Anr., (2004) 6 SCC 36; Mohd.

Shahabuddin v. State of Bihar, (2010) 4 SCC 653; Punjab State

Electricity Board & Anr. v. Ashwani Kumar, (2010) 7 SCC 569;

M. Chandra v. M. Thangmuthu & Anr., AIR 2011 SC 146; and R.

Ramachandran Nair v. Deputy Superintendent, Vigilance Police,

(2011) 4 SCC 395)

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Page 36 46.In view of the above discussion and considering the seriousness

of the allegations, as the Scrutiny Committee has already conducted

an inquiry in relation to this matter, and the only grievance of the

appellant is that there has been non-compliance with the principles of

natural justice, and the fact that the applications filed by him, were not

decided upon, we direct that before the submission of any report by

the Scrutiny Committee, his application for calling the witnesses for

cross-examination must be disposed of, and appellant must be given a

fair opportunity to cross-examine the witnesses, who have been

examined before the Committee. We further direct the Scrutiny

Committee to pass appropriate orders in accordance with the law

thereafter. In case, the Scrutiny Committee has already taken a

decision, the same being violative of the principles of natural justice,

would stand vitiated.

47.The appeal is disposed of accordingly, however, considering

the fact that respondent no. 5 has not been pursuing the matter in a

bonafide manner, and has not raised any public interest, rather he

abused the process of the court only to harass the appellant, the

respondent no. 5 is restrained from intervening in the matter any

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Page 37 further, and also from remaining a party to it, and he is also liable to

pay costs to the tune of Rs. one lakh, within a period of 4 weeks to

the District Collector, Aurangabad. The District Collector,

Aurangabad, would deposit the said amount in the account of the

Supreme Court Legal Services Committee. In the event that, the cost

imposed is not deposited by respondent no. 5 within the period

stipulated, we request the District Collector, Aurangabad, to recover

the same as arrears of land revenue and deposit the same, accordingly.

A copy of the judgment be sent by the Registry of this Court to

the District Collector, Aurangabad (Maharashtra) for compliance.

…………………………………… J.

(Dr. B.S. CHAUHAN)

…………………………………… J.

(JAGDISH SINGH KHEHAR)

New Delhi,

November 8, 2012

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