2014 (12) TMI 1436 - SC - Indian Laws

Authority to manage and control bus shelters in Chennai - authority of the MTCL in allotting contract for erection and maintenance of bus shelters - HELD THAT - Section 285-A has to be read in conjunction with Section 285. Section 285 empowers the Commissioner to construct or provide public landing places halting places cart-stand etc. The Explanation includes a stand for carriages that includes motor vehicles within the definition of cart-stand. Section 285-A authorises the Commissioner to prohibit use of public place or sides of public street as cart-stand etc. by any person within such distance which has to be determined by the standing committee. The proviso carries out an exception which stipulates that nothing contained in Section 285-A shall be deemed to authorise the Commissioner to prohibit the use of any place in the city by the State Government as a stand solely for motor vehicles belonging to the Transport Department of the State Government. There remains no iota of doubt that the legislature has conferred power on the Corporation to take necessary action for public convenience and make provisions for the cart-stand which includes the motor vehicles. The exception carved out by a proviso to Section 285-A of the Act does not remotely suggest that the legislature has even conceived of any other body like MTCL which is a State undertaking to even construct the bus shelters. What has been engrafted in the proviso to Section 285-A of the Act is that the Corporation or its agent cannot prohibit the use of any place in the city to be used for motor vehicles belonging to Transport Department of the State Government as a stand - 285-A of the Act has to be read in juxtaposition with Section 285 of the Act and by no stretch of suggestion it can be read to include bus shelters. The word stand has to be understood as per the common meaning given to it. That apart the text context and the pattern of use of words do suggest that it is meant for providing stand for the motor vehicles. In the case at hand as it is concluded that it is the Corporation who has the authority to deal with the bus shelters and not MTCL the equity has to yield to law. It is submitted by the learned Counsel for the Appellants that they have spent huge amount in erecting the structures and also doing certain ancillary things in that regard and therefore appropriate extension should be granted. Such a prayer needless to say is in the realm of equity. It cannot be granted as that will violate the law. The contract between the MTCL and the Appellants cannot bind the Corporation. Had there been an irregularity in the contract or any lapse then the question of invoking the principle of equity could have arisen but as it is perceptible it is an agreement between two parties in respect of an act which one of the parties is not entitled to enter into as it has no legal authority. In the instant case the Appellants entered into a compromise/settlement with the MTCL. They were fully aware of the fact that as per the High Court judgment MTCL did not have the authority. On the basis of the judgment of the High Court such a settlement could not have been entered into. Despite the same a settlement was entered and the cases were disposed of. Conclusion - The contracts entered into by the Appellants with the MTCL cannot be sustained and they are accordingly annulled. It is directed that the Corporation shall take over the management of the bus shelters forthwith and shall proceed to deal with them for all purposes by taking recourse to procedure of tender or auction which should be fair and transparent. This direction shall prevail all other directions issued by the High Court. Appeal dismissed.

Summary

1. ISSUES PRESENTED and CONSIDERED

The core legal questions considered in this judgment are:

• Whether the Metropolitan Transport Corporation Limited (MTCL) or the Chennai Municipal Corporation has the authority to construct and manage bus shelters in Chennai.
• Whether the Government Order allowing MTCL to manage bus shelters is valid under the Chennai City Municipal Corporation Act, 1919.
• The implications of the settlement agreement entered into by MTCL with private parties and whether it affects the rights of the Chennai Municipal Corporation.
• Whether the principles of equity can be applied to uphold the agreements made by MTCL despite the statutory provisions.
• The conduct of MTCL and the private parties in entering into agreements post the High Court judgment.

2. ISSUE-WISE DETAILED ANALYSIS

Issue 1: Authority to Construct and Manage Bus Shelters

• Relevant Legal Framework and Precedents: The Chennai City Municipal Corporation Act, 1919, particularly Sections 203, 204, 214, and 285, outlines the powers of the Corporation regarding public streets and appurtenances.
• Court's Interpretation and Reasoning: The Court concluded that the Corporation has the authority to control public streets and provide amenities like bus shelters for public convenience.
• Key Evidence and Findings: The Act vests control of public streets in the Corporation, and MTCL has no statutory authority to manage bus shelters.
• Application of Law to Facts: The Court found that the Corporation is responsible for public convenience and safety, which includes managing bus shelters.
• Treatment of Competing Arguments: Arguments that MTCL had authority based on a Government Order were rejected as the Order was not in conformity with the Act.
• Conclusions: The Corporation is the rightful authority to manage bus shelters, not MTCL.

Issue 2: Validity of the Government Order

• Relevant Legal Framework and Precedents: The Court examined the Government Order in light of the statutory provisions of the Act.
• Court's Interpretation and Reasoning: The Order was found to be inconsistent with the Act, which does not authorize the State Government to delegate such powers to MTCL.
• Key Evidence and Findings: The Order allowed MTCL to manage bus shelters, which was beyond the scope of the Act.
• Application of Law to Facts: The Order was deemed invalid as it contravened statutory provisions.
• Treatment of Competing Arguments: The Court dismissed the argument that the Order was valid under the proviso to Section 285-A.
• Conclusions: The Government Order was invalid, and the authority to manage bus shelters rests with the Corporation.

Issue 3: Settlement Agreement and Rights of the Corporation

• Relevant Legal Framework and Precedents: The Court considered the implications of the settlement agreement in light of the High Court's judgment.
• Court's Interpretation and Reasoning: The settlement agreement was found to be detrimental to the Corporation's rights and was not binding.
• Key Evidence and Findings: The agreement was entered into without the Corporation's involvement, affecting its statutory rights.
• Application of Law to Facts: The settlement was invalid as it contravened the High Court's decision and statutory provisions.
• Treatment of Competing Arguments: The Court rejected the argument that the settlement was valid due to the absence of the Corporation in the proceedings.
• Conclusions: The settlement agreement was annulled, and the Corporation's rights were upheld.

Issue 4: Application of Equitable Principles

• Relevant Legal Framework and Precedents: The Court examined whether equity could override statutory provisions.
• Court's Interpretation and Reasoning: Equity cannot override statutory rights, and the agreements made by MTCL were invalid.
• Key Evidence and Findings: The agreements were made in contravention of statutory authority and could not be upheld on equitable grounds.
• Application of Law to Facts: The Court found no basis to apply equity to uphold the agreements.
• Treatment of Competing Arguments: The Court dismissed the argument for equitable relief due to the statutory violations.
• Conclusions: Equity could not be applied to validate the agreements.

Issue 5: Conduct of MTCL and Private Parties

• Relevant Legal Framework and Precedents: The Court assessed the conduct of MTCL and the private parties in light of the High Court's judgment.
• Court's Interpretation and Reasoning: MTCL and the private parties acted in bad faith by entering into agreements post-judgment.
• Key Evidence and Findings: The agreements were made despite the High Court's ruling against MTCL's authority.
• Application of Law to Facts: The conduct of MTCL and the private parties was found to be deceitful and against statutory provisions.
• Treatment of Competing Arguments: The Court rejected the argument that the agreements were made in good faith.
• Conclusions: The conduct of MTCL and the private parties was condemned, and the agreements were annulled.

3. SIGNIFICANT HOLDINGS

• Preserve verbatim quotes of crucial legal reasoning: "Equity and law are twin brothers and law should be applied and interpreted equitably but equity cannot override written or settled law."
• Core principles established: The statutory authority of the Corporation over public streets and bus shelters cannot be overridden by government orders or equitable principles.
• Final determinations on each issue: The Corporation is the rightful authority for managing bus shelters; the Government Order is invalid; the settlement agreement is annulled; and the conduct of MTCL and private parties is condemned.