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R.S Keluskar v. Union Of India And Others

Bombay High Court
Aug 23, 2007
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Summary of Legal Opinion

Factual and Procedural Background

The petitioner, Mr. R.S. Keluskar (an advocate practising in the Railway Claims Tribunal at Mumbai), filed a claim application before the Railway Claims Tribunal on behalf of Mr. Jayesh Sharad Bhavsar. The claim alleged that the claimant had fallen from a local train causing fingers of his right leg to go under the wheel, resulting in permanent partial disablement, and claimed Rs. 5,00,000. The Railway contested the claim, asserting the incident was not an "untoward incident" under section 123(c) of the Railways Act, 1989, because the injured person had trespassed on the track and not fallen from the train, and put the claimant to strict proof.

The Tribunal dismissed the claim application on 6th February, 2006, by an order dismissing the claim "in default" because the applicant's counsel had been irregular in appearance and causing delay; the Tribunal noted no stay or direction from any Court had been placed before it.

The petitioner then filed the present writ petition in his personal capacity (without the claimant's signature or a power of attorney on record) seeking several reliefs including writs to quash the Tribunal's order, an award of compensation (Rs. 6,28,992 including penalties and interest), declarations/orders concerning sections 123(c)(2) and 124A of the Railways Act, 1989, and other reliefs and costs.

The Union of India opposed the writ petition, asserting it was misconceived, mala fide and not maintainable; it stated the injured had been treated at multiple hospitals and had been a trespasser, the claim had been rejected by the Tribunal, and that the petitioner had earlier filed a Public Interest Litigation (PIL No. 2361 of 2005) which was dismissed by the Division Bench on 8th June, 2006 where similar reliefs had been claimed.

Legal Issues Presented

  1. Whether the writ petition filed by the petitioner (without the claimant's signature or authority) challenging the Tribunal's dismissal should be entertained, given alleged non-disclosure of material facts and lack of authority.
  2. Whether the petitioner is entitled to the reliefs prayed for, including quashing the Tribunal order and an award of compensation (Rs. 6,28,992 with penalty and interest).
  3. Whether the provisions of section 123(c)(2) and section 124A of the Railways Act, 1989 (and related definitions) are vulnerable to the constitutional challenge made by the petitioner.
  4. Whether the writ petition constitutes an abuse of the process of the Court and/or is a disguised private litigation rather than a bona fide public interest litigation.

Arguments of the Parties

Petitioner's Contentions

  • The petitioner presented a claim on behalf of the injured before the Railway Claims Tribunal alleging injury due to falling from a train and sought compensation (originally Rs. 5,00,000 before the Tribunal; in the writ petition he sought Rs. 6,28,992 with penalty and interest).
  • In the writ petition the petitioner sought: (i) issuance of writs (certiorari or others) under Article 226; (ii) award of compensation of Rs. 6,28,992 including 50% penalty and 12% interest for seven years; (iii) setting aside the Tribunal's dismissal order; (iv) an order regarding section 123(c)(2) (definition covering catching of trains); (v) striking down section 124A (sub-clauses a–e); (vi) further necessary reliefs; and (vii) costs.
  • Note: The petition was filed by the petitioner in his own capacity and no authority or power of attorney from the injured was placed on record (this fact is recorded by the Court as part of the background and reasoning).

Union of India's Contentions (Respondent)

  • The writ petition is misconceived, filed with mala fides and is not maintainable on facts or law.
  • The injured had been treated at Bhagwati Hospital (Borivali), Diamond Hospital and Ashwini Hospital (Colaba); the claim before the Tribunal was rejected because the injured was a trespasser on the railway track and there was no liability on the part of the Railway.
  • The petitioner had earlier filed a PIL (No. 2361 of 2005) which was dismissed by a detailed order dated 8th June, 2006 in which similar reliefs were claimed, and thus the present petition is an abuse of process. The Union also submitted that provisions of sections 123(c)(2) and 124A are valid and serve the public interest.

Table of Precedents Cited

Precedent Rule or Principle Cited For Application by the Court
Kandivali Education Society College Alumni v. Manoj J. Joshi (PIL Writ Petition No. 14 of 2007) Illustration of principles governing PILs: courts should scrutinise petitions that appear to be private litigation in the garb of PILs; caution against entertaining petitions with primarily private interest. The Court relied on the Division Bench's exposition to support its view that the present petition was not aimed at public interest but was frivolous/private and hence unsustainable.
Kusum Lata v. Union of India & Ors. (2006) 6 SCC 180 Principle that where private interest is more significant than public interest, or litigation is for ulterior motive, courts should dismiss such writ petitions. Used to reinforce the proposition that PILs disguised as private litigation must be rejected; applied to conclude the petition was private in nature.
Dattaraj Nathuji Thaware v. State of Maharashtra (2005) 1 SCC 590 Support for the principle discouraging PILs that are essentially private/service matters and not genuine public interest litigation. Invoked to show established authority for not entertaining such petitions and to justify dismissal of the present petition.
Gurpal Singh v. State of Punjab, 2005 (5) SCC 136 Illustration of judicial reluctance to entertain litigation that serves private interest under the guise of public interest. Applied as part of the body of authorities indicating courts should decline to entertain petitions motivated by private interest.
Dr. B. Singh v. Union of India (2004) 3 SCC 363 Cautions courts to weed out petitions titled as PILs but which are not genuine; courts should discourage frivolous PILs and may impose exemplary costs. Relied upon to emphasise that frivolous petitions should be dismissed and to characterise the present petition as the sort of litigation the courts should deter.
Duryodhan Sahu (Dr.) v. Jitendra Kumar Mishra (1998) 7 SCC 273 Authority indicating that PILs in service matters should not be entertained (as a general principle). Used to support the proposition that petitions motivated by private/service concerns are improper for PIL treatment; bolstered the Court's view of the petition as private and frivolous.
Shri Sachidanand Pandey v. The State of West Bengal (1987) 2 SCC 295 Principles to avoid abuse of PIL proceedings; necessity of enunciating principles to restrain those who rush to Court under the guise of public interest. Invoked to justify the exercise of restraint and to hold that the present petition did not satisfy the basic ingredients of a genuine public interest litigation.
Division Bench order of this Court dated 8th June, 2006 (R.M. Lodha and A.S. Bagga, JJ.) Held that the concept of contributory negligence was neither introduced nor recognised in section 124A of the Railways Act, 1989; and that the period of limitation could not be removed as claimed by the petitioner in the earlier petition. The Court noted that the petitioner had previously raised similar challenges which had been considered and rejected by that Division Bench. That order had attained finality and was not challenged, supporting the conclusion that the present petition was repetitious and barred by principles akin to constructive res judicata.

Court's Reasoning and Analysis

The Court's reasoning proceeded in a sequence anchored in fact-finding about the petitioner's conduct and in application of established principles concerning public interest litigation and abuse of the judicial process:

  1. Non-disclosure and factual misrepresentation: The Court recorded that the petitioner, while referring to a claim petition filed on behalf of the injured, did not state in the writ petition that the claim had already been dismissed on 6th February, 2006; he did not provide details of that dismissal nor annex a copy of the order, despite praying for its setting aside. The Court found that the petitioner had also failed to disclose that he had earlier filed Writ Petition No. 2361 of 2005 which was dismissed on 8th June, 2006. The Court concluded that the petitioner withheld true and material facts within his knowledge, rendering the petition ex facie factually false.
  2. Lack of authority and inconsistency: The petitioner filed the writ petition in his own capacity without producing any document showing authority from the injured (no power of attorney or claimant signature). The Court noted that the reliefs sought in the writ petition were in apparent contradiction to the claim earlier raised before the Tribunal (which had been rejected), and emphasized that no authority or document was placed on record to show that the present petition had been filed in accordance with law.
  3. Prior adjudication and finality: The Court referred to the Division Bench's earlier order dated 8th June, 2006 dismissing the petitioner's prior writ petition; that earlier order had examined challenges to section 124A and had held that the concept of contributory negligence was neither introduced nor recognised and that the period of limitation could not be removed as the petitioner had claimed. That order had attained finality and was not challenged by the petitioner, and the present petition reasserted substantially the same contentions without fresh material.
  4. Principles governing PILs and abuse of process: Drawing on the Division Bench decision in Kandivali Education Society and the Supreme Court authorities cited therein (Kusum Lata; Dattaraj; Gurpal Singh; Dr. B. Singh; Duryodhan Sahu; Shri Sachidanand Pandey), the Court reiterated the basic features of a public interest litigation: it must advance a larger public interest, be free of mala fides, not be motivated by private interest, must not involve suppression of material facts, and repeated or vexatious litigation should be discouraged. The Court applied these principles to the facts and found that the present petition was a private litigation in the guise of a PIL, filed repeatedly without authority and therefore an abuse of the process of the Court.
  5. Conduct of a legal practitioner: The Court observed that the petitioner, who claims to be a practising advocate, ought to have exercised greater restraint and not filed repetitive petitions of this nature.
  6. Conclusion based on combined considerations: On the combined basis of non-disclosure of material facts, absence of authority to prosecute the petition on behalf of the injured, prior final adjudication of similar issues, and established principles discouraging disguised private litigation filed as PILs, the Court concluded that the petition was frivolous and an abuse of process, and it should be dismissed.

Holding and Implications

Holding: The writ petition is DISMISSED.

Implications:

  • The direct effect is dismissal of the petition filed by the petitioner; the Court explicitly recorded that it was not imposing any costs in the present case.
  • The Court's decision rests on procedural and substantive grounds recorded in the opinion: (a) withholding of material facts and factual falsity; (b) lack of authority to file on behalf of the injured; (c) the petition being repetitious and previously dismissed by a Division Bench whose order had attained finality; and (d) the petition amounting to an abuse of the process of the Court and not being a bona fide public interest litigation.
  • The opinion does not announce a new legal precedent altering the law; rather it applies established principles (as cited) to the particular facts and conduct of the petitioner to dismiss the petition.

Order pronounced: Writ petition dismissed.

Show all summary ...

Swatanter Kumar, C.J:— The petitioner in this petition, Mr. R.S Keluskar, who is an advocate practising in the Railway Claims Tribunal at Mumbai, filed a claim application before that Tribunal on behalf of one Mr. Jayesh Sharad Bhavsar. This claim application was contested on behalf of the Railway. It was stated in the claim application that the claimant had fallen down from the local train and fingers of his right leg came below the wheel of the local train resulting in permanent partial disablement. In these circumstances he claimed the compensation of Rs. 5,00,000/-. A reply was filed wherein it was stated that the accident in question was not an untoward incident within the meaning of section 123(c) of the Railways Act, 1989 as he had trespassed on the track and not fallen from the train. It was further stated that the applicant is put to strict proof thereof.

2. This claim application was dismissed by the Tribunal vide its order dated 6th February, 2006, which reads as under:

“A perusal of record shows that appearance of the Counsel for the Applicant is highly irregular since long and is causing delay in the disposal. Sufficient concession has been granted to him on the ground that he has filed a PIL in the Honourable High Court. However, the Applicant has brought nothing to our notice that there is any stay of proceedings or any direction has been issued to this Tribunal.

The claim application is, therefore, dismissed in default.”

3. The petitioner has filed this petition in his own capacity without signature of the Claimant or appropriate authority to him to file the present petition, claiming the following reliefs:

(i) To issue writ of certiorari or any other appropriate writ, order or direction of the same nature in exercise of its jurisdiction under Article 226 of the Constitution of India;

(ii) To award compensation of Rs. 6,28,992.00 including 50% penalty and 12% interest for the 7 years.

(iii) To set aside the dismissal order of the trial Court in Original Claim Application No. 109/2000 before the Railway Claims Tribunal at Mumbai.

(iv) To issue order in respect of section 123(c)(2) which includes catching of the train as per definition clause 2(31)(b).

(v) To act like a mini Parliament and strike down section 124a (a), (b), (c), (d) and (e).

(vi) To grant such further and other reliefs as may be found necessary in the circumstances of the case; and

(vii) To award costs.

4. The writ petition was contested on behalf of the Union of India. It was stated that the present writ petition is misconceived and has been filed with mala fides and is neither maintainable on facts nor on law. It is further averred that the injured was hurt by a local train and was treated at Bhagwati Hospital, Borivali and after initial treatment was taken to a private hospital, namely, Diamond Hospital and thereafter to Ashwini Hospital at Colaba. The claim application filed by him was dismissed. He was a trespasser on railway track and there was no responsibility on the part of the Railway to pursue the said claim. The said claim was rejected. In addition thereto, it is stated that the petitioner in the present petition, in his own capacity, has earlier filed a Public Interest Litigation being No. 2361 of 2005, which was dismissed by a detailed order dated 8th June, 2006 where similar reliefs were claimed and hence the present writ petition is an abuse of the process of law and, in any case, the provisions of section 123(c)(2) and section 124A of the Railways Act, 1989 are properly constituted and valid, and serve greater public interest.

5. At the very outset we must notice that in the writ petition though the petitioner has referred to filing a claim petition on behalf of the injured, but nowhere in the writ petition a statement has been made that the said claim petition was dismissed as back as on 6th February, 2006. He has not given details of dismissal nor annexed copy of the order though in his prayer he has prayed for setting aside of the said order. Furthermore, no detailed reference has been made by him in the entire petition that he had earlier filed a writ petition, being No. 2361 of 2005, which was dismissed on 8th June, 2006. In other words, the petitioner has withheld true and material facts which were within his knowledge and thus has filed the present writ petition which ex facie suffers from factual falsity. Besides this, the petition is also an abuse of the process of Court as the relief claimed by the petitioner in the writ petition on behalf of the injured, whose authority/power of attorney has not been placed on record. Though he has prayed for compensation of Rs. 6,28,992/-, the claim is in apparent contradiction to the claim raised before the Tribunal which, as noted above, was rejected. The above obviously means that the order was within the knowledge of the present petitioner and he had intentionally withheld the same from the Court. As far as vires of the provisions of the Act are concerned, a writ petition of the petitioner was already dismissed by a detailed order of the Division Bench of this Court (Mr. R.M Lodha and A.S Bagga, JJ.) on 8th June, 2006. In the order, the Division Bench, despite the fact that the present petitioner remained absent, examined the details of the case, noticed the challenge to the provisions of section 124A of the Railways Act, 1989 and held that the concept of contributory negligence was neither introduced in the said provision nor it was recognised. Further the Court held that the period of limitation could not be removed as claimed by the petitioner in that petition. The petitioner again claimed the same relief in the present writ petition though he had worded the petition to cover the ambit of section 123 of the Railways Act, 1989, without producing any fresh material and the petitioner ultimately wants to get compensation, which claim has already been rejected by the Tribunal. It may be noted that the order of the Division Bench dated 8th June, 2006 has already attained finality and has not been challenged by the petitioner so far. It appears that the petitioner is filing petition after petition on the same cause of action and that too without the consent or authority of the injured. No documents whatsoever have been placed on record to show that the present writ petition has been filed in accordance with law and after taking due authority.

6. We may refer to certain basic principles governing filing and entertaining of the writ petition in the present time. The Division Bench of this Court in the case of PIL Writ Petition No. 14 of 2007, Kandivali Education Society College Alumni v. Manoj J. Joshi has held as under:

“6. Here is a person who was appointed as a Lecturer 8 years back and has discharged the functions of a Lecturer for all this time. There is no explanation rendered by the petitioner why they did not approach the Court for all these years, if they were genuinely concerned with maintenance of education standards of the University. The present litigation ex facie appears to be a private litigation in the garb of a Public Interest Litigation. The principles enunciated by the Supreme Court in the cases of Kusum Lata… v. Union Of India & Ors.…, (2006) 6 SCC 180; Dattaraj Nathuji Thaware v. State of Maharashtra, (2005) 1 SCC 590; Gurpal Singh v. State of Punjab, 2005 (5) SCC 136 and Dr. B. Singh v. Union of India (2004) 3 SCC 363, are clear that where the private interest is more significant than a public interest or where the litigation is for an ulterior motive and is intended to settle personal vendetta rather than public good, the Court should essentially dismiss such writ petitions. In the case of Dr. B. Singh (supra), the Supreme Court while observing that the Courts should discourage such litigations, held as under:

“16. As noted supra, a time has come to weed out the petitions, which though titled as public interest litigations are in essence something else. It is shocking to note that Courts are flooded with a large number of so-called public interest litigations where even a minuscule percentage can legitimately be called as public interest litigations. Though the parameters of public interest litigation have been indicated by this Court in a large number of cases, yet unmindful of the real intentions and objectives, Courts are entertaining such petitions and wasting valuable judicial time which, as noted above, could be otherwise utilised for disposal of genuine cases. Though in Duryodhan Sahu (Dr.) v. Jitendra Kumar Mishra, (1998) 7 SCC 273: 1998 SCC (L & S) 1802; (1998) 7 SCC 273 : AIR 1999 SC 114 this Court held that in service matters PILs should not be entertained, the inflow of so-called PILs involving service matters continues unabated in the Courts and strangely are entertained. The least the High Courts could do is to throw them out on the aspect is that in the PILs, official documents are being annexed without even indicating as to how the petitioner came to possess them. In one case, it was noticed that an interesting answer was given as to its possession. It was stated that a packet was lying on the road and when out of curiosity the petitioner opened it, he found copies of the official documents. Apart from the sinister manner, if any, of getting such copies, the real brain or force behind such cases would get exposed to find out the truth and motive behind the petition. Whenever such frivolous pleas, as noted, are taken to explain possession, the Court should do well not only to dismiss the petitions but also to impose exemplary costs. It would be desirable for the Courts to filter out the frivolous petitions and dismiss them with costs as aforestated so that the message goes in the right direction that petitions filed with oblique motive do not have the approval of the Courts.”

7. The truth as it emerges from the facts on record is clear that the present writ petition as filed is not intended to achieve any public object, goal or interest. The petition, at the face of it, is frivolous. It is also noteworthy that the petitioners are well aware about the entire litigation between the respondent No. 1, the University and the College. Still they have never made any attempt to intervene or prayed for impleadment in such proceedings. The attempt appears to be to continue or prolong the litigation on one pretext or another.”

7. The main and basic feature of a public interest litigation is that the litigation must be for a larger public interest, must be free of action and which should not be determined mala fide, malicious and abuse of the process of the Court, it must not be individual or private interest oriented. Repeated litigation filed before the Court could neither determine as fair nor proper. The public interest litigation must get complete facts and there should be definite averment without any intent to withheld from the Court relevant and necessary facts. In the case of Shri Sachidanand Pandey v. The State of West Bengal, (1987) 2 SCC 295 : AIR 1987 SC 1109, the Court clearly indicated that it is necessary to enunciate the principles to avoid the litigants, who rush to the Court and file cases in public interest, some restraint need to be exercised. The present case, besides being an abuse of the process of Court, does not also satisfy the basic ingredients of a public interest litigation. The record sufficiently reflects the individual interest of the petitioner. The petition has been filed without authority of law and at the same time is hit by the principles of constructive res judicata. The petitioner could have claimed necessary reliefs in the previous writ petition. Firstly, the petitioner claimed the reliefs even in the earlier writ petition filed by him being Writ Petition No. 2361 of 2005 and whatever he did not claim which he ought to have claimed he would be barred from claiming in the present writ petition. The writ petition, thus is an abuse of the process of Court and should be dismissed.

8. The petitioner, who claims to be a practicing advocate, should have exercised greater restraint and as a responsible member of noble profession should not have filed such petitions repeatedly.

9-10. Consequently, writ petition is dismissed, though we are not imposing any costs in the present case.

Writ petition dismissed.