Goverdhan Lal Dhawan v. State of Bihar & Others

VENKATARAMIAH, J. The short point which arises for consi­ deration in this case is whether without a prior agreement between two or more Regional Transport Authorities through which an inter­ regional route passes it is open to any one of the said Regional Trans­ port Authorities to grant a permit to ply a stage carriage on the said F inter-regional route under the provisions of the Motor Vehicles Act, 1939 (hereinafter referred to as 'the Act'). After the opening of the 'Mahatama Gandhi Sethu' connecting South Bihar and North Bihar by road there was a great need for granting permits to operate stage carriage services between places G which are situated in North Bihar and the places in South Bihar. Therefore, in order to satisfy the demand of the travelling public, the North Bihar Regional Transport Authority issued an advertisement inviting applications for granting stage carriage permits in respect of inter-regional routes connecting certain places situated within its jurisdiction and certain other places which are situated within the H 596 SUPREME COURT REPORTS [1988) Supp. 1 S.C.R. A jurisdiction of South Bihar Regional Transport Authority. A number of applications were received for the grant of the permits on the said inter-regional routes. The North Bihar Regional Transport Authority issued notices to all the persons concerned stating that the said applica­ tions would be taken llp for ~onsideration at its meeting to be held on 7th April, 1988.. The petitioner who was operating some stage B carriages on some ot the inter-regional routes filed a writ petition In C.W.J.C. No. 2063 of 1988 on the file of the High Court of Patna questioning the power of the North Bihar Regional Transport Autho­ rity to grant permits on the inter-regional routes without a prior agree­ ment between it and the South Bihar Regional Transport Authority and obtained a~ order of stay of the said proceedings from the High C Court on 6th April, 1988 pending disposal of the Writ Petition. The Writ Petition was heard by the High Court on 3.5.1988 and it was dismissed. Aggrieved by the order of the High Court the petitioner has filed this petition. When the Writ Petition was filed before the High 'Court the D petitioner did not implead the applicants who had made applications for the grant of stage carriage permits. The applicants, however, appeared before the High Court as interveners and made their sub­ missions. They contended that the Writ Petition was liable to be dis­ missed since they (the applicants for permits) had not been imp leaded as parties and that the contention of the petitioner that a prior E agreemeut between the two Regional Transport Authorities was necessary before any one of them could grant a permit was erroneous. The High Court has upheld both the contentions. Under section 45(1) of the Act every application for a permit has to be made to the Regional Transport Authority of the region in which F it is proposed to use the vehicle or vehicles but if it is proposed to use the vehicle or vehicles in two or more regions lying within the same State, the application has to be made to the Regional Transport Authority of the region in which the major portion of the proposed route or area lies, and in case the portion of the proposed route or area in each of the re_gions is approximately equal, to the Regional Trans- G · port Authority of the region in which it is proposed to keep the vehicle or velricles. The application for stage carriage permit should contain the particulars required to be furnished under section 46 of the Act. Section 57 of the Act provides for the procedure to be followed for granting permits. On receipt of an application for a stage carriage permit the Regional Transport Authority should make the application H available for inspection at the office of the Authority and is also G.L. DHAWAN v. STATE OF BIHAR [VENKATARAMIAH, J.] 597 required to publish the application or the substance thereof in the prescribed manner together with a notice of the date before which representations in connection therewith may be submitted and the date, not being less than thirty days from such publication, on which, and the time and place at which, the application aotl aily representa­ tions received would be considered. The Regiona:I transport Autho­ rity should, while consideriag an application for a stage carnage permit,. have regard to the matters specified in section 47 of the Act, namely, the interest of the public generally, the adequacy of the passengers, the stage carriages operating or likely to operate in the near future wbether by road or other means between the places to be served, the benefit to any particular locality or localities likely to be afforded by the service et~. At the hearing it.iS open to any one of the parties who has objected to the grant of the perinit to raise all aonten" tions which are open to him under the Act including that there is no need for issuing the permit applied for. Ubtter sub-section (3) of section 47 of the Act a Regional Transport Authority may limit the number of stage carriages generally or of any specified type for which stage carriage permits may be granted in the region or in any specified area or on any specified route within the region. It has been held by this Court in Mohd. Ibrahim etc, v. State Transport Appellate Tribunal, Madras, etc., [197il 1 S.C.R. 474 iiiat sub-section (3) of section 47 is confined in its operation lo the permits under which the stage carnages are to be operated between two or more places within the same region and that section 47(3) does not apply to applications for inter-State penD.its or to inter-regional permits. We shall refer to this decisiQn again at a later stage. The relevant part of section ti3 of the Act reads thus: "63. Validation of permits for use outside region in which granted -(1) Except as may be otherwise pres- F cribed, a permit granted by the Regional Transport Authority of any one region shall not be valid in any other region, unless the permit has been counter-signed by the Regional Transport Authority of that other region, and a permit granted in any one State shall not be valid in any other State unless counter-signed by the State Transport G Authority of that other State or by the Regional Transport Authority concerned . . . . . . . . . . . . . . . . . . ; ....................... ; ......... . (2) A Regional Transport ~ilthority when counter" H signing the permit may attach to the permit any condition which it might have imposed if it had granted the permit, and may likewise vary any c0ndition attached to the permit by the Athority by whic:h' the permit was granted. (3) The provisions of the Chapter relating to the grant, revocation and suspension uf permits shall apply to the grant, revocation and suspension of countersignatures of permits: Provided that it shall not be necessary to follow the procedure laid down in Section 57 for the grant of counter­ signatures ofpermits, where the permits granted in any one State are required to be counter-signed by the State Trans­ port Authority of another State or by the Regional Trans­ port Authority concerned as a result of any agreement arrived at between the States after complying with the requirements of sub-section (3-A), or for the grant of countersignatures of permits in pursuance of any direction issued by the Commission under clause (c) of sub-section (2) of section 63-A." A reading of the provisions of section 63 of the Act, extracted above, shows that in the absence of any rules to the contrary framed E under the Act a permit granted by the Regional Transport Authority of any one region is not valid in any other region. unless the permit has been counter-signed by the Regional Transport Authority of the other region and a permit granted in any one State is not valid in any other State unless it is countersigned by the State Transport Authority of the other State or of the Regional Transport Authority concerned. When F countersigning a permit it is open to the Regional Transport Authority of the other region to impose its own conditions which it might have imposed if it had granted the permit. The provisions of Chapter IV relating to the grant, revocation or suspension of permits apply to the grant, revocation or suspension of the countersignature of the permits also. If there are any rules framed by the State Government under the (} Act they shall supersede the provisions of section 63 of the Act and the rules framed in that regard have to be followed by the Transport Authorities in the case of inter-regional permits. If There is an agree­ ment between the States concerned with regard to the grant and the countersignature of the permits, then it is not necessary to comply with the procedure prescribed by section 63 of the Act for countersignature H of permits. No rule framed under the Act by the State of Bihar with G.L. DHAWAN v. STATE OF BIHAR [VENKATARAMIAH, J.J 599 regard to the procedure to be foliowed in the case of countersignature of permits has been brought to our notice. We shall, therefore, pro­ ceed on the basis that the provisions of section 63 of the Act would be applicable to all inter-regional permits in the State of Bihar. Since section 47(3) is held to be inapplicable to inter'State permits or inter­ regional permits it is open to the Regional Transport Authority con­ cerned to decide the question whether there is any nece:;sity to issue the permit applied for at the time of consideration of th~ application ' for the grant of a permit in the light of the representations made before the Regional Transport Authority by the applicants, objectors and other concerned parties. In Mohd. Ibrahim etc. v. State Transport Appellate Tribunal, Madras etc., (supra) dealing with the question whether there was any necessity for a piior determination of the max­ imum number of stage carriages which can be permitted to operate on an inter-State route, this Court observed at page 483 of the Report thus: "These provisions establish that in the case of an inter-State permit an application has to be made to the D Regional Transport Authority of a State as mentioned in section 45 of the Act and the permit is to be countersigned by the State Transport Authority of the other State or by the Regional Transport Authority concerned as mentioned in section 63 of the Act. Chapter IV consists of sections 42 to 6$. Section 57 deals with procedure for application and E grant of permits. That section will, therefore, apply for the grant of inter-State pertnits. The effect of the proviso to section 63(3) is that in the case of inter-State permits where an agreement has been arrived at between the State the provisions of section 57 of the Act need not be followed for the grant of countersignatures of permits. In other cases F the procedure in section 57 of the Act will apply in regard to grant, revocation and suspension of permits and to countersignatures of permits as well. Section 48 of the Act which relates to power to grant of stage carriage permits will also apply to inter-State permits. The provisions con­ tained in sub-section (1) generally and sub-section (2) of G section 47 will apply to the Regional Transport Authority at the time of consideration of the application for inter­ State stage carriage pertnit. Sectio:i 47(3) of the Act will not in our opinion apply to inter-State permits because that pro­ vision relates to a Regional Transport Authority limiting the number of stage carriages for which stage carriage permits H t may be g;anted in the region or in any spetified area or on ,any specified route within the region." \underlining by us) The Court .proceeded to observe: "In otber words, section 47(3) of the Act is confined in its operation in or within the region. The provisions of section 47(3) of the Act do not apply to inter-State permits because an inter-State petrnit cannot be effective unlesss it is countersigned by the Authority of the other State. The suggestion that in regard to inter-State permits a limit has to be fixed in regard to number of stage carriages for inter­ State routes will have the effect of adding words to the provisions in section 47(3) of the Act. That will not be the proper way of giving effect to section 47(3) of the Act. It will be misreading section 47(3) of the Act if it will be applied to inter-State permits. The combined effect of sections 63, 63-A, 63-B and 63-C is that the inter-State Commission will deal with inter-State permits. The Central tJovernnient under section 63-C of the Act is authorised to make rules in regard to the procedure to be followed in considering an application for grant and countersignature of permits. In the absence of specific rules, the best way of harmonising the powers and functions is to allow these inter­ State authorities to exercise their power within their respec­ tive spheres in regard to grant and countersignature of permits by agreement and accord," (underlining by us). The last·sehten~e hi the above extract of the judgment contains only a suggestion made by the Court to the inter-State authorities concerned regarding the manner in which the inter-State authorities should exercise their powers with regard to the grant and countersig­ nature of permits to avoid any possible difference of opinion between G them. It does not, however, require a Regional Transport Authority in ohe State to enter Into an agreement with the Regional Transport Authority in the other State before granting an inter-State permit under tbe Act. the observation referred to above is not a part of the raiio of the dedsion, 1t may also be noted that a similar observation is not made by the court While dealing with the case of ah inter-regional H permit ~thin a State. In fact, irt the case of inter-State permits there is - G.L. DHAWAN v. STATE OF BIHAR IVENKATARAMIAH, J.J 601 already ali etjiress provision enabling two or more States to enter into an inter-State agreement. In the same decision at Pages 483-484 the ·Court made the· following observations in respect of inter-regional permits: "In the case of inter-regional permits an application under sectioa 45 of the Act has ti!> be made to the Regional 'ifransport Authority of the region in which the major por­ tion of the proposed route or a:rea lies and in case the portion of the propo~ed route or area in each of the regions .is approximately equal, to the Regional Transport Autho­ rity of theregion in which it is proposed to keep the vehicle or vehicles. Then under section 63 of the Act a permit granted by the Regional Transport Authority of one region shall not be valid in any (lther region unless the permit is counter~igned by the Regional Transport Authority of that other region. Section 63(3) of the Act makes the provisions ot Chapter IV applicable relating to the grant, revocation artll suspension of permits to the grant, revocation and suspension._ of cou:ntersignature of pennits. The result is that sections 47 to 68 which occur in Chapter IV are there­ fore attracted ·in case of inter-regional permits. In view of the fact that section 47(3) of theAct is restricted in its field in or within the region, the provisions in terms do not become applicable to inter-regional permits. Section 68 of the Act contemplates rules and conditions subject to which and the extent t•o which, a permit shall be valid in another region within the State without countersignature. We have not been shown any rules to that effect. The reasons which do not make section 47(3) applicable to inter-State permit apply proprio vi gore to inter-regional permits." It is significant that the Act does not contain any procedure for two or more Regional Transport Authorities entering_into an agree­ mentbefore an application for an inter-regional petmit is granted. The only provision which provides for an agreement to 'be arrived at, for purposes of countersignatures is the agreement between two or more G States referred to in the first proviso to sub-section (3) of section 63 of the Act. An inter-State agreement of that nature can be arrived at only after following the procedure prescribed under sub-section (3-A) of section 63 of the A¢t which provides for the publication of the proposal to enter into an agreement between the concerned States in the Offi- cial Gazette and calling for representations in connection therewith .. H A .from the affected parties and also the publication of the time and place at which the proposal or any representation is received in connection therewith will be considered by the Government concerned. At that stage it is open to the parties whO are affected by the proposal to make all representations which they wish to make including the representa­ tion that there i.• no necessity to introduce any more stage carriage.s on B the inter-State routes in question. In one sense the procedure pres­ cribed in sub-section (3-A) of section 63 of the Act takes thti place of the procedure to be followed by a Regional Transport Authority while granting o{ counter-signing permits. If any State Government is of opinion that in the case of inter-regional permits within its, territory there should be a similar agreement between the Regional Transport C Authorities concerned before granting any inter-regional permit, it may frame appropriate rules providing fqr publication of the proposal to enter into an agreement, inviting objections to the proposal and hearing objections and representations of the affected parties by the concerned Regional Transport Authorties before entering into any such agreement In the absence of any such rules being there, it is open p to the affected parties to raise the contention that there is no necessity to issue any additional inter-regional permit before the Regional Transport Authority to which application for the grant of a permit is made as well as the Regional Transport Authority to which an applica­ tion for counter-signature of the permit is made. IE In the instant case since there is no provision in the Act or in the Rules made by the State Government requiring the existence of such a prior agreement, it is difficult to hold that in the absence of such a prior agreement between the Regional Transport Authorities con­ cerned an application for the grant of an inter-regional permit should not be taken up for consideration by a Regional Transport Authority F which bas the jurisdiction to grant it under section 45 of the Act. If a permit is issued by a Regional Transport Authority and it is not countersigned by the other Regional Transport Authority the permit will not be effective in the other region. What we have observed above is in accord with the decision of a Constitution Bench of this Court in Mis. Bundelkhand Motor Transport Company, Nowgaon v. Behari Lal G Chaurasia and Another, [1966] I S.C.R. 485. In that case at Page 492 the Constitution Bench has observed thus: "Under s. 63 a permit granted by the Regional Trans­ port Authority of one region is not valid in any other region, unless the permit has been countersigned by the Regional Transport Authority of that other region. The •• _, .... G.L. DHAWAN v. STATE OF BIHAR [VENKA:TARAMIAH, J.] 603 clearest implication of this provision is that even an inter­ regional permit when granted is valid for the region over which the Authority granting the permit has jurisdiction, and when it is countersigned by the Regional Transport Authority of the other region, the permit becomes valid for the entire route. We are unable to agree with counsel for the respondent that the permit has no validity whatever until it is countersigned by the Regional Transport Autho­ rity of the other region." The North Bihar Regional Transport Authority has, therefore, jurisdiction to consider the applications for the grant of the inter­ regional permits in question. After they are granted, it is open to the C South Bihar Regional Transport Authority to consider whether they should be countersigned or not after following the prescribed procedure. The High Court was, therefore, right in dismissing the Writ Peti­ tion. This Special Leave petition, therefore, fails and it is dismissed. S.L. Petition dismissed.