Supreme Court of India
STERLING COMPUTERS LIMITED ETC.versusM & N PUBLICATIONS LIMITED AND ORS.
- Citation
- 1993 INSC 12
- Decided
- 12 January 1993
- Disposal
- Dismissed
- Bench
- N M KASLIWAL
Holding
The supplemental agreement is a fresh contract awarded without tender, violative of Article 14, and is therefore void.
Summary
The case concerned a supplemental agreement dated 26 September 1991 by which Mahanagar Telephone Nigam Ltd. (MTNL) awarded Sterling Computers Ltd. the right to print and publish telephone directories for Delhi and Bombay for the period 1991‑1998, without inviting fresh tenders. The original contract with United India Periodicals (UIP) had expired and UIP had repeatedly breached its obligations, leading MTNL to seek a way to complete the directories. The writ petitioners challenged the supplemental agreement as a fresh contract that violated Article 14 of the Constitution because MTNL considered irrelevant factors and failed to follow the mandatory tendering procedure, thereby causing loss to the State. The Supreme Court held that the supplemental agreement was not a mere extension but a new contract awarded arbitrarily and on irrelevant considerations, rendering it void for contravening Article 14. Consequently, the Court dismissed the appeals and upheld the High Court’s order quashing the supplemental agreement. The judgment emphasized that public authorities must follow fair procedures in public procurement and that judicial review focuses on the decision‑making process, not the contract terms.
Issues considered
- The supplemental agreement is a fresh contract that requires compliance with the tendering procedure under Article 14.
- Whether MTNL’s decision to award the contract without tender was based on irrelevant considerations or mala fide intent.
- Whether the decision‑making process violated the constitutional guarantees of equality (Article 14) and the definition of State under Article 12.
- The scope of judicial review in contractual matters involving public authorities.
Subjects
government contractsupplemental agreementArticle 14Article 12judicial reviewpublic procurementtendering procedureirrelevant considerationsmala fidepublic authority discretion
Judgment
-(
STERLING COMPUTERS LIMITED ETC. A
l v.
M & N PUBLICATIONS LIMITED AND ORS.
JANUARY 12, 1993
[N.M. KASLIWAL AND N.P. SINGH, JJ.) B
Constitution of India : Articles 12, 14, 19, 32, 136, 226 and 298.
Government contracts-:Tudiciai review-Court primarily concerned
with infirmity in decision making process-Urgency of disposal by courts of c
such matters-Necessity for.
Telephone directorie..-Publication of-Contract termed 'supplementa!
~ -< contract' grantetf--Held amounted to grant of fresh contract in garlJ of 'sup-
plemental contract'.
D
The three appeals arose out of disputes relating to the publication
of telephone directories of MTNL a Government of India Undertaking.
The MTNL introduced a new concept of "yellow pages" in telephone direc-
tories, and these yellow pages were to contain advertisement under dif-
.+- ferent beadings. The contractor who was to be awarded the contract for
E
printing such directories was to collect the revenue from the advertise-
ments in the yellow pages as well as in the white pages of the telephone
directory, supply the same free of cost to the MTNL for its subscribers,
and pay royalty to the MTNL in connection with printing or such direc-
tories.
F
--- .....; Tenders for publication of the directories for Delhi and Bombay
were invited. Tender of UIP - respondent No. 2 in the Writ Petition and
appellant in one of the appeals (C.A.No. 91 of 1993) was accepted, and an
agreement dated 14th March, 1987 was executed. UDI, respondent No. 3
to the Writ Petition and appellant in one of the other appeals (CA No. 90.
of 1993) was a subsidiary of UIP. G
" I Under the original agreement UIP was to pnblish directories every
year for a period of five years from 1987 to 1991 for Delhi and Bombay
separately, pay an amoont of Rs. 20.16 crores as royalty to the MTNL,
supply the directories free of cost to subscribers. UIP also furnished a H
81
82 SUPREME COURT REPORTS [1993] 1 S.C.R.
A performance guarantee for a sum of Rs. one crore, and was also to supply
the same ·number of supplementary directories which were to be published
six months after the publication of the annual issue, to be published in
November/December every year. UIP was given the exclusive right for
procurement of the advertisements in the yellow pages as well as strips,
B bold the extra entries in the white pages, the rates to 'be fixed by the UIP
for each issue of the directory, and such rates to be printed for general
information. It was stipulated that ir UIP committed default or breach of
the agreement or failed in the due performance thereof, the MTNL shall
be entitled to recover from the UIP by way of compensation or liquidated
damages and amount calculated at the rate of Rs. One lakb for every day
C or part thereof for the delay beyond the stipulated date. The MTNL
without pttjudice to other rights could by notice in writing determine the
contract.
UIP defaulted and committed breach of the agreement inasmuch as
D directories for Delhi were published only for the years 1987 and 1988 and
for Bombay only for the year 1987. For the year 1987, Delhi issue was
published after a delay of seven months and Bombay issue afte~ six
months, and the Delhi Issue of 1988 was published only in August, 1990, a
delay of two years. There was no publication of the directories for Delhi
for the years 1989, 1990 and 1991, and in respect of Bombay for the years
E 1988, 1989, 1990 and 1991.
A supplem~ntal agreement was entered on 26th September, 1991
between UIP, UDI, MTNL and Sterling Computers Limited ·appellant in
one of the appeals (C.A. No. 89 of 1993). Sterling by this agreement was
F introduced to carry out the unexecuted po.rtion of the agreement with UIP.
By this supplemental agreement Sterling was to print and publish 13 main
issues of Delhi and Bombay directories within a period of seven years
includiug the year 1991 on payment of additioual royalty of only Rs. 10
crores to the. MTNL over and above the royalty stipulated in the original
agreement by the UIP.
G
Under the agreement dated 14th March, 1987 the royalty which was
payable was Rs. 20.16 crores for the period 1987 to 1991, but under the
supplemental agreement Sterling was given the contract to publish 13
main issues of the Delhi and Bombay directories upto 1997 and 1998, bnt
H for the extended period it had to pay royalty only for an amount of Rs. 10
STERLING COMPUTERS v. M & N PUBLICATIONS 83
crores. A
A Writ Petition was filed questioning the validity and legality of the
supplemental agreement on different .grounds including the ground of
ma/a fide. It was contended by the petitioners that under the garb of a
supplemental agreement a fresh contract was awarded to Sterling for a
fresh period from 1991 to 1997 on fresh terms and conditions to publish B
the directories every year for Delhi and Bombay without inviting tenders
or affording an opportunity to others, to submit tenders so that they may
be also considered for award of the said contract. It was asserted by the
petitioners that In the process of entering into the supplemental agree-
ment the MTNL, which is a public undertakigg and a 'State' within the C
- meaning of Article 12 of the constitution, had suffered a loss of more than
Rs. 60 crores without any corresponding benefit accruing to the MTNL or
to the public in general.
MTNL contested the writ petition, contending that the supplemental
agreement was a result of a bona fide commercial decision free from any D
bias or malice, that the original contract for the years 1987 to 1991 had
been awarded to UIP after inviting tenders, but UIP having gone
bankrupt, no money could have been realised from it. The termination of
the ortgioal contract was no remedy although repeated contraventions and
breaches had been committed by the UIP inasmuch as there was no E
publication of directory for Bombay for the years 1988, 1989, 1990 and
1991 and for Delhi for the years 1989, 1990 and 1991. Io order to salvage
Rs. 20.16 crores which was payable to the MTNL under the original
agreement dated 14th March, 1987 by the UIP and which had not been
paid, a decision was taken by the MTNL to enter into a supplemental
agreement and to allow the UIP/UNI/Sterling to publish the thirteen F
issues of directories, six main issues for Delhi and seven main issues for
Bombay upto years 1997-98 apart from the supplementary directories.
The High Court allowed the Writ petitions, and came to the con-
clusion that the .. supplemeotal agreement dated 26th September, 1991 G
'cannot be held tO be an extension of the original agreement dated 14th
March, 1987, and that the supplemental agreement was tainted with
malice - the object being to provide on-just enrichment to UIP/UDI/Ster-
ling.
In the' appeals to this Court, it was contended on behalf of the H
84 SUPREME COURT REPORTS (1993] 1 S.C.R.
A appellants that the supplemental agreement was entered into by the
MTNL taking into consideration the circumstances then existing which )-
bad been examined at the highest level and as such a Court should not
examine the discretion exercised by the public authority as a court or
appeal because the decision to enter into the supplemental agreement also
B involved a question or policy, and it was pointed out that the contract had
been awarded in the year 1987 to UIP on an experimental basis on such
terms and conditions on which in past directories had not ever been
published, and that the real experiment was as to how the directories
could be published without incurring any cost by MTNL.
C On behalf or the Writ Petitioners it was stated that they were prepared
to pay to the MTNL an amount of Rs. 60 crores for the period 1991 to
1997/1998 the pedod covered by the supplemental agreement for which the
UIP/UDl/Sterling have undertaken to pay only Rs.10 crores as royalty.
--
Dismissing the appeals, this court
D
HELD: 1. The publication or directories by the MTNL is not just
a commercial venture, the primary object is to provide service to the
people. [92F)
2. The norms and procedures prescribed by Government ancl indl·
E cated by Courts have to be more strictly followed while awarding contracts
which have along with a commercial element a public purpose. [92F)
3. The action or the procedure adopted by the authorities which can
be held to be a 'State' within the meaning or Article 12 or the Constitution,
' while awarding contracts in respect of properties belonging to the state
F can be judged and tested in the light or Article 14 or the Constit'!tion.
Raman Davaram Shetty v. The International Airport Authority of India,
AIR 1979 SC 1628; Mis. Kasturi Lal Lakshmi Reddy v. The State of Jammu
and Kashmir, AIR 1980 SC 1992; Fertilizer Corporation Kamgar Union
G (Regd.) Sin<Jri v. Union of India, AIR 1981 SC 344; Ram and Shyam
Company v. State of Haryana, AIR 1985 SC 1147; Haji T.M. Hasan Rawther
v. Kera/a Financial Corporation, AIR 1988 SC 157; Mahabir Auto Stores v.
Indian Oil Corporation, AIR 1990 SC 1031 and Kumari Shrilekha Vidyarthi
v. State of U.P., AIR 1991 SC 537, referred to. [92-H·93·A)
H 4. Public authorities, at times it is said must have the same liberty
STERLING COMPUTERS v. M & N PUBLICATIONS 85
as they have lo framing the policies, even while entering into contracts A
because many contracts amount to implementation or projection of
policies of the Government. But it cannot be overlooked that unlike
pollcles, contracts are legally binding commitments and they commit the
authority which may be held to be a State within the meal!lng of Article 12
or the Constitution In many cases for years. That is why the courts have
Impressed that even in contractual matters the public authority should
B
not have unfettered discretion. [91G-H, 92A]
• 5. In .contracts having commercial elements, some more di1scretion
bas to be conceded to the authorities so that they may enter into c~cts
with persons, keeping an eye on the augmentation of the revenue. ,But even C
in such matters they have to follow the norms re<iogl!ised by courts while
dealing with public property. [92B]
6. Under some special circumstances a discretion bas to be ~Oliceded
to the authorities who have to enter into contract giving them liberty to D
assess the overall situation for purposes or taking a decision as to whom
the contract is to be awarded and at what terms. If the decisions have been
taken In bone fide manner although not strictly following the norms laid
down by the Courts, such decisions are upheld. [92C]
7. Public authorities are essentially different from those of private E
persons. Eno while taking decision In respect ofcommercial transactions
a public authority must be guided by relevant considerations and not b>
-· irrelevant ones. If such decision is influenced by extraneous considera-
tions which it ought not to have been taken into account the ultimate
decision is bound to be vitiated, even if it is established that such decision F
had been taken without bias. [1028, 103A]
8. While exercising the power of judicial review, in respect of con·
tracts entered into on behalf of the State, the Court is concerned prima:·ily
as to whether there bas been any infirmity in the "decision making
process". By way of judicial review the Court cannot examine the details of G
the terms of the contract which have been entered into by the public bodies
or the state. Courts have inherent limitations on the scope of any such
enquiry. But the Courts can certainly exami11e whether 'decision maki11g
process' was reasonable, rational, not arbitrary and violative of Article 14
of the Con~titution. [95C-E-F] H
86 SUPREME COURT REPORTS (1993] l S.C.R.
A Chief Constable of the North Wales Police v. Evans, [1982) 3 All ER
141, referred to. r--
9. In the facts and the circumstances of the instant case, it has to be
held that the MTNL has applied the "irrelevant considerations" doctrine
wbile granting a fresh contract for a period of live years through the
B supplemental agreement dated 26th September, 1991, because it had failed
to take into account considerations which were necessarily relevant i.e.
following the rule of inviting tenders while granting the contract for a
further period of live years on fresh terms and conditions and had taken ""
into account irrelevant considerations. [lOlH, 102A)
c 10. Philanthropy is no part or the management of an undertaking,
while dealing with a contractor entrusted with the execution of a con-
tract. ·[102F]
11. The supply of the directories to pnblic in time, was a public
D service which was being affected by the liberal attitude or the MTNL and
due to the condonation of delay on the part of the UIP/UDI. There was no
justification on the part of the MTNL to become benevolent by entering
into the supplemental agreement with no apparent benefit to the MTNL,
without inviting fresh t•nders from intending persons to perform the some
job for the next live years. [102G] ~-
E
12. The supplemental agreement is really a fresh agreement with
fresh terms and conditions ';"hich has been entered by MTNL without
inviting any tender for the same. It has been entered to benefit the parties
who are admittedly defaulters by not publishing directories for Bombay
F for the years 1988-1991, and for Delhi for the years 1989-1991 although
they had collected several crores or Rupees for the advertisem•nts for the
directories to be published in the aforesaid years. [103D·El
13. It is a matter of common experience that whenever applications
relating to awarding of contracts are entertained for judicial review of the
G administrative action, such applications remain pending for months and
· in some cases for years. Because of the interim orders passed in such
applications, the very execution of the contracts, are kept in abeyance. The
cost of different projects keep on escalating with passage of time apart
from the fact that the completion of the project itself Is deferred. This
H process not only affects the public exchequer but even the public in general
•' -~
STERLING COMPUTERS v. M & N PUBLICATIONS [N.P. SINGH, J.] 87
who are deprived of availing the facilities under different projects. As A
--(
such, it need not be impressed that while exercising the power of judicial
'
review in connection with contractual obligations, Courts should be con·
scions or the urgency of the disposal of such matters, otherwise the power
which is to be exercised in the interest of the public and for public good
in some cases become counter- productive by causing injury to the public
B
in general. [106A,B]
CIVIL APPELLATE JURISDICTION: Civil Appeal Nos. 89-91 of
1993.
From the Judgment and Order dated 30.9.1992 of the Delhi High
Court in W.P. No. 1872 of 1992. ·
c
K. Parsaran, Kapil Sibal, L.P. Agarwalla, N.P. Agarwalla, Ani1 Agar-
walla, Gopal Subramaoium, Fazal-ul-Quaidir, P.H. Parekh, Ms. Nina
- ·...: Gupta and Vfueet Kumar for the Appellant.
D
K.K. Venugopal, P. Chidambaram, Ani1 P. Diwan, Harish N. Salve,
Vijay Narain, P.P. Tripathi and P.P. Singh for the Respondents.
R.N. Keshwani for the Intervenor.
The following Judgment of the Court was delivered by E
N.P. SINGH. J. Leave granted.
.--- Three appeals have been filed against the same judgment of the High
Court by which the Writ Petition filed on behalf of the petitioners/respon-
dents (hereinafter referred to as "the writ-petitioners") was allowed. The F
dispute relates to the publication of the telephone directories of
\ Mahanagar Telephone Nigam Limited, a Government of India Undertak-
ing (hereinafter referred to as "the MTNL").
A new concept of yellow pages in the telephone directories was
introduced by the MTNL/Department of Telecommunications. The yellow G
pages were to contain advertisements under different headings. The con-
tractor who was to be awarded the contract for printing such directories
\ was to collect the revenue from the advertisements in the yellow pages as
well as in white pages of the telephone directory. The contractor was to
print the directories and supply the same free of cost to the MTNL for its H
~-
88 SUPREME COURT REPORTS (1993) 1 S.C.R.
A subscribers and had to pay royalty to .the MTNL in connection witl
printing of such directories.
Tenders for publication of the directories for Delhi and Bombay
were invited. Tender of the United India Periodicals Pvt. Ltd. (hereinafter
referred to as 'the lJIP", the 2nd respondent to the Writ Petition and
B appellant in one of the appeals) was accepted and an agreement dated 14th
March, 1987 was executed. United Database (India) Pvt. Ltd. (hereinafter
referred to as "the UDI", the 3rd respondent to the Writ Petition ant!
appellant in one of the appeals) is a subsidiary of UIP. Under the original
agreement UIP was to publish directories every year for a period of five
C years from 1987 to 1991 for Delhi and Bombay separately and was to pay
an amount of Rs. 20.16 crores as royalty to the MTNL and to supply the
MTNL directories free of cost with reference to the number of subscribers.
-
UIP also furnished a performance guarantee for a sum of Rs. one crore.
UIP was also to supply the same number of supplementary directories
D which were to be published six months after the publication of the annual
issue. The annual issue of the directory was to be published in Novem-
ber/December every year. UIP was given the exclusive right for procure-
ment of the advertisementf in the yellow pages as well as strips, bold and
extra entries in the white pages. The rates of such advertisements were to
E be fixed by the UIP for each issue of the directory and such rates had to
be printed for general information. It was also stipulated that if UIP
committed any default or breach of the terms and conditions of the
agreement or failed in the due performance thereof within the time fixed
(which was the essence of the contract), the MTNL shall be entitled to
recover from the UIP by way of compensation or liquidated damages an
F
amount calculated at the rate of Rs. one lakh for every day or part thereof
for the delay beyond the stipulated date in respect of the item which was
not completed or finished and delivered completely to the MTNL on the
stipulated date as mentioned in the contract. In view of clause 22 of the
agreement, the MTNL without prejudice to other rights could by notice in
G writing determine the contract.
It is an admitted position that UIP defaulted and committed breach
of the terms of the agreement inasmuch as directories for Delhi were
published only for the years 1987 and 1988 and for Bombay only for the
H year 1987. For the year 1987, Delhi issue was published after a delay of
STERLING COMPUTERS v. M & N PUBLICATIONS [N.P. SINGH, J.] 89
seven months and that of Bombay after six months. So far Delhi issue of A
the directory for the year 1988 is concerned, it was published only in
August, 1990 after a delay of two years. Under the agreement UIP was to
publish directories every year for Delhi and Bombay separately during the
period of contract from 1987 to 1991. They were also required to publish
supplementary directory each year for Delhi as well as Bombay. But there
was no publication of directories for Delhi for the years 1989, 1990 and
B
1991. Similarly there was no publication of directories in respect of Bombay
for the years 1988, 1989, 1990 and 1991.
On 26th September, 1991 " >upplemental agreement was entered
between UIP, UDI, MTNL and Sterling Computers Ltd. (hereinafter c
referred to as "Sterling", appellant in one of the appeals). Sterling by this
agreement was introduced to carry out the unexecuted portion of the
agreement with UIP. It may be mentioned that by this date the period of
- --..: the original agreement dated 14th March, 1987 between the MTNL and
the UIP had expired, still the supplemental agreement states that "subject D
to UIP/UDI and Sterling successfully completing the unexecuted job relat-
ing to printing of Bombay and Delhi telephone directories within the
stipulated time frame and other stipulations in the agreement MTNL shall
extend the original contract for three more issues each for Delhi and
Bombay, i.e., seven main issues of Bombay and six main issues of Delhi of
the said directories to be brought out hereafter". The agreement further E
stipulated that all terms and conditions contained in the original agreement
and the memorandum of understanding would be the integral part of the
supplemental agreement and all obligations of UIP/UDI and rights and
privileges and powers provided for MTNL thereunder and uncler the law
shall be applicable and available to and binding on the parties to the F
-, supplemental agreement as if the same were the part of the supplemental
agreement. It was also said that if there was any inconsistency or contradic-
tions vis-a-vis the original agreement, the memorandum of understanding
read with supplemental agreement shall prevail and would have overriding
effect. By the supplemental agreement Sterling was to print and publish 13
main issues of Delhi and Bombay directories within a period of seven years G
including the year 1991 on payment of additional royalty of only Rs. 10
crores to the MTNL over and above the royalty stipulated in the original
agreement by the UIP. As mentioned above the original royalty which was
payable under the agreement dated 14th March, 1987 was Rs. 20.16 crores
for the period 1987 to 1991 but under the supplemental agreement Sterling H
90 SUPREME COURT REPORTS (1993] 1 S.C.R.
A was given the contract to publish 13 main issues of the Delhi and Bomvay
directories. upto 1997 and 1998, but for the extended period it bad to pay
royalty only for an amount of Rs. 10 crores. It was left to the UIPIUD! to
receive all revenue earnings on account (cast and future) from the adver-
tisements and MTNL was to be only informed about the prices as fJXed.
B The Writ Petition aforesaid was filed questioning the validity and
legality of the supplemental agreement on different grounds including on
ground of ma/a fide. According to the writ-petitioners under the garb of a
supplemental agreement a fresh contract was awarded to Sterling for a
fresh period from 1991 to 1997 on fresh terms and conditions to publish
c the directories every year for Delhi and Bombay without inviting tenders
or affording an opportunity to others, to submit tenders so that they may
be also considered for award of the said contract. It was asserted by the
-
petitioners that in the process of entering into the supplemental agreement
the MTNL, which is a public undertaking and a State within the meaning
D of Article 12 of the Constitution, has suffered a loss of more than Rs. 60
crores without any corresponding benefit accruing to the MTNL or to the
public in general.
Before the High Court the stand of the MTNL was that the sup-
plemental agreement was a result of a bona fide commercial decision free
E from any bms or malice. The original contract for years 1987 to 1991 had
been awarded to UIP after inviting tenders but UIP, having gone bankrupt,
no money could have been realised from it. The termination of original
contract was no remedy although repeated contraventions and breaches
had been committed by the VIP inasmuch as there was no publication of
p directory for Bombay for the years 1988, 1989, 1990 and 1991 and for Delhi
for the years 1989, 1990 and 1991. It was stated on behalf of the MTNL
before the High Court that in order to salvage Rs. 20.16 crores which was
payable to the MTNL under the original agreement dated 14th March,
1987 by the UIP and which had not been paid, a decision was taken by the
MTNL to enter into a supplemental agreement and to allow the
G UIP/UDl/Sterling to publish the thirteen issues of directories, six main
issues for Delhi and seven main issues for Bombay upto years 1997-98 apart
from the supplementary directories.
The High Court came to the conclusion that supplemental agreement
H dated 26th September, 1991 cannot be held to be the extension of the
STERLING COMPUTERS v. M & N PUBLICATIONS [N.P. SINGH, J.] 91
_,, original agreement dated 14th March, 1987. According to the High Court A
\ the supplemental agreement was tainted with malice - the object being to
provide unjust enrichment to UIP/UDI/Sterling.
The most interesting part of the controversy is that the MTNL having
fully supported the supplemental _agreement before the High Court has
filed an affidavit before this Court saying that "MTNL has decided to B
accept the High Court judgment in so far as that the procedure for the
grant of contract dated 26.9.1991 to the petitioner Mis Sterling Computers
Ltd. Was not in keeping with the requirement of Article 14 of the Con-
stitution and is not filing any petition for Special Leave against the said
c
-· judgment. However, as far as aspersions -are concerned, MTNL does not
accept the same and the same are matters of investigation and enquiry by
an independent Central Agency at present." It has been further stated that
subsequent events have shown that the Sterling has collected Rs. 19.59
crores approximately for advertisements in yellow pages without delivering
the goods. They have also encashed the letter of credit issued by the D
'MTNL' prematurely. This collection is apart from the collection of Rs. 14
crores against the yellow pages advertisements made by UDI and UIP
during the years 1987-1991. It has been further stated that the Board of
'MTNL' had in fact even decided to terminate the contract for lapse in the
performance of the obligations under the 26th september, 1991 agreement
but as the High Court has quashed the said supplemental agreement no E
further step was considered necessary. Ultimately it has been said in the
said affidavit that 'MTNL' has started the process for inviting fresh public
tenders and for that purpose advertisement has already been issued.
Mr. Venugopal, appearing for the writ-petitioners before us, stated F
on behalf of the writ-petitioners that they are prepared to pay to the
'MTNL' an amount of Rs. 60 crores for the period 1991 to 1997/1998 the
period covered by the supplemental agreement for which the UIP/UDI/
Sterling have undertaken to pay only Rs. 10 crores as royalty.
At times it is said that public authorities must have the same liberty G
as they have in framing the policies, even while entering into contracts
°'y because many contracts amount to implementation or projection of policies
of the Government. But it cannot be overlooked that unlike policies,
contracts are legally binding commitments and they commit the authority
which may be held to be a State within the meaning of Article 12 of the H
92 SUPREME COURT REPORTS [1993] 1 S.C.R.
-
A Constituion in many cases for years. That is why the Courts have impressed
that even in contractual matters the public authority should not have
unfettered discretion. In contracts having commercial element, some more
discretion has to be conceded to the authorities so that they may enter into
contracts with persons, keeping an eye on the augmentation of the revenue.
But even in such matters they have to .follow the norms recognised by
B Courts while dealing with public property. It is not possible for Courts to
question and adjudicate every decision taken by an authority, because many
of the Government Undertakings which in due course have acquired the
monopolist position in matters of sale and purchase of products and with
so many ventures in hand, they can come out with a plea that it is not always
c possible to act like a quasi judicial authority while awarding contracts.
Under some special circumstances a discretion has to be conceded to the
authorities who have to enter into contract giving them liberty to assess the
-
overall situation for purpose of taking a decision as to whom the contract
be awarded and at what terms. If the decisions have been taken in bona
D fide manner although not strictly following the norms laid down by the
courts, such decisions are upheld on the principle laid down by justice
Holmes, that Courts while judging the constitutional validity of executive
decisions must grant certain measure of freedom of "play in the joints" to
the executive.
E But in normal course some rules must exist to regulate the selection
of persons for awarding contracts. In such matters always a defence cannot
be entertained that contract has been awarded without observing the well
settled norms and rules prescribed, on basis of the doctrine of "executive
neces.ity". The norms and procedures prescribed by Government and
indicated by Courts have to be more strictly followed while awarding
F
contracts which have along with a commercial element a public purpose as
in the present case. The publication of directories by the MTNL is not just
a commerical venture; the primary object is to provide service to the
people.
G The action or the procedure adopted by the authorities which can be
held to be State within the meaning of Article 12 of the Constitution, while
awarding contracts in respect of properties belonging to the State can be
judged and tested in the light of Article 14 of the Constitution, is settled
by the judgments of this court in the cases of Raman Dayaram Shetty v.
H The lntemational Aitport Authority of India, AIR 1979 SC 1628; Mis. Kasturi
STERLING COMPUTERS v. M & N PUBLICATIONS [N.P. SINGH, J.] 93
Lat Lakshmi "Reddy v. The State of Jammu & kashmir, AIR 1980 SC 1992; A
--.;
\
Fertilizer CorpOTtion Kamagar Union (Regd.) Sintlri v. Union of India, AIR
1981 SC 344; Ram and Shyam Company v. State of Haryana, AIR 1985 SC
1147; Haji T.M. Hasan Rawther v. Kera/a Financial Corporation, AIR 1988
SC 157; Mahabir Auto Stores v. Indian Oil Corporation, AIR 1990 SC 1031
and Kumari Shrilekha Vidyanhi v. State of U.P., AIR 1991 SC 537. It has
B
been said by this Court :-
"It must follow as a necessary corollary from this proposition
that the Government cannot act in a manner which would
benefit a private party at the cost of the State: such an action
would be both unreasonable and contrary to public interst. The C
Government, therefore, cannot for example give a contract or
sell or lease out its property for a consideration less than the
highest that can be obtained for it, unless of course there are
other considerations which render it reasonable and in public
interest to do so."
D
[M/s. Kasturi Lal Lakshmi Reddy v. The State of Jammu &
Kashmir.)
There is nothing paradoxical in imposing legal limits on such
authorities by Courts even in contractual matters because the whole con-
ception of unfettered discretion is inappropriate to a public authority, who
E
is expected to exercise such powers only for public good.
According to the appellants, the supplemental agreement was
entered into by the MTNL taking into consideration the circumstances
then existing which had been examined at the highest level and as such a F
Court should not examine the discretion exercised by the public authority
- \ as a court of appeal because the decision to enter into supplemental
agreement also involved a question of policy. It was pointed out that the
contract had been awarded in the year 1987 to UIP on an experimental
basis on such terms and conditions on which in past directories had not
ever been published. The real experime'1t was as to how the directories G
could be published without incurring any cost by the MTNL. The publisher
being given the right. not only to reimburse itself from the advertisements
published in the yellow and white pages but" was also to pay royalty to the
MTNL. It was further pointed out that from the resolutions of the MTNL.
It shall appear that the authorities' were concerned that the experiment H
94 SUPREME COURT REPORTS [1993) 1 S.C.R.
A aforesaid must succeed. With that object in view, another opportunity was
given to UIP/UDI/Sterling through the supplemental agreement to publish
the directories for Delhi and Bombay. That decision should not be ex-
amined by this Court like a court of appeal.
It is true that by way of judicial review the Court is not expected to
B act as a court of appeal while examining an administrative decision and to
record a finding whether such decision could have been taken otherwise in
the facts and circumstances of the case. In the book Administrative Law,
Prof. Wade has said :-
"The doctrine that powers must be exercised reasonably has to
c be reconciled with the no less important doctrine that the court
must not usurp the discretion of the public authority which
parliament appointed to take the decision. Within the bounds
of legal reasonableness is the area in which the deciding
authority has genuinely free discretion. If it passes those
D bounds, it acts ultra vires. The court must therefore resist the
temptation to draw the bounds too tightly, merely according to
its own opinion. It must strive to apply an objective standard
which leaves to the deciding authority the full range of choices
which legislature is presumed to have intended. The decisions
which are extravagant or capricious cannot be legitimate. But
E
if the decision is within the confines of reasonableness, it is no
part of the court's function to look further into its merits. With
the question whether a particular policy is wise or foolish the
court is not concerned; it can only interfere if to pursue it is
beyond the powers of the authority.'
F
But in the same book Prof. Wade has also said:-
"The powers of public authorities are therefore essentially
different from those of private persons. A man making his will
may, subject to any rights of the dependants, dispose of his
G property just as he may wish. He may act out of malice or a
spirit of revenge, but in law this does not affect his exercise of
his power. Jn the same way a private person has an absolute
power to allow whom he likes to use his land, to release a
debtor, or, where the law permits, to evict a tenant, regardless
H of his motives. This is unfettered discretion. But a public
STERLING COMPUTERS v. M & N PUBLICATIONS [N.P. SINGH, J.] 95
authority may do none of these things unless it acts reasonably A
and in good faith and upon lawful and relevant grounds of
I public interest.
There are many cases in which a public authority has been held
to have acted from improper motives or upon irrelevant con-
siderations, or to have failed to take account of relevant con- B
siderations, so that its action is ultra vires and void."
While exercising the power of judicial review, in respect of contracts
entered into on behalf of the State,· the Court is concerned primarily as to
whether there has been any infirmity in the 'decision making process". In
this connection reference may be made to the case of Chief Constable of
c
the North Wales Police v, Evans, (1982) 3 All ER 141, where it was said that
'The purpose of judicial review" -
- '--<. ' ... is to ensure that the individual receives fair treatment, and
not to ensure that the authority, after according fair treatment, D
reaches on a matter which it is authorised or enjoined by law
to decide for itself a conclusion which is correct in the eyes of
the court.'
By way of judicial review the court cannot examine the details of the terms
-,i.. of the contract which have been entered into by the public bodies or the
E
state. Courts have inherent limitations on the scope of any such enquiry.
But at the same time as was said by the House of Lords in the aforesaid
case, Chief Constable of the North Wales Police v. Evans (supra), the Courts
can certainly examine whether 'decision making process' was reasonable,
rational, not arbitrary and violative of Article 14 of the Coruititution. F
~_,. If the contract has been entered into; without ignoring the procedure
which can be said to be basic in nature and after an objective consideration
. of different options available taking into account the interest of the State
and the public, then Court cannot act as an appellate authority by substitut-
ing its opinion in respect of selection made for entering into such contract. G
But, once the procedure adopted by an authority for purpose of entering
into a contract is held to be against the mandate of Article 14 of the
~.- Constitutfon, the Courts cannot ignore such action saying that the
authorities concerned must have some latitude or liberty in contractual
matters and any interference by court amounts to encroachment on the H
96 SUPREME COURT REPORTS [1993] 1 S.C.R.
A exclusive right of the executive to take such decision.
In support of the stand that it was open to the MTNL to negotiate
with the UIP/UDI/Sterling for purpose of publication of the directories for
Delhi and Bombay without inviting tenders, reliance was placed on behalf
B of the appellants on the judgments of this Court in the cases of Kasturi Lal
Lakshmi Reddy v. State of Jammu and Kashmir, (1980] 3 SCR 1338; State
of Madhya Pradesh v. Nandlal Jaiswal, (1987] 1 SCR; Sachidanand Pandey
v. State of West Bengal, (1987] 2 SCC 295 and G.B. Mahajan v. Jalgaon
Municipal Council, (1991] 3 SCC 91.
c From the facts of the case of Kasturi Lal Lakshmi Reddy (Supra) it
shall appear that every year the State used to auction the blazes in different
forests. Most of the contractors bidding at the auction had their factories
outside Jammu & Kashmir. A decision was ta~en that from the year
1979-80 onwards resin extracted from its forests should not be allowed to >- .
D be exported outside the territories of the State and should be utilised only
by industries set up within the State. There were certain forests which were
out of access on account of their distance from the roads and no contractor
could be fonnd for taking tapping contracts even on the basis of royalty.
The Chief Conservator of Forests and other Forest Officers at a meeting
took a decision which was also confirmed at a subsequent meeting, between
E the Forest Minister, the Forest Secretary and the Chief Conservator of
Forests, that the blazes for such inaccessible areas should be allotted to
some private party. In view of that decision the second respondent who
had earlier addressed a letter to the State Government offering to set up
a factory for manufacture of resin turpentine oil and other derivatives in
F the State and had sought for allotment of 10,000 metric tonnes of resin
annually was sanctioned the allotment of 11.85 lacs blazes in the inacces-
sible areas for a period of 10 years on the terms and conditions set out in
the order. This was challenged in the aforesaid case. This Court said that
whatever be its activity, the Government is still the Government and is,
G subject to restraints inherent in its position and as such every activity of
the Government which has a public element in it must be resonable and
not arbitrary. However, the allotment of the contract in favour of the
second respondent was upheld. It was pointed out that the blazes were
situated in inaccessible areas and in spite of the offers given no bidders
were attracted and as such the State had no option but to allot the said
H contract on basis of the offer made by the second respondent.
-~,
STERLING COMPUTERS v. M & N PUBLICATIONS [N.P. SINGH, J.] 97
The case of State of Madhya Pradesh Ii. Nandla/ Jaiswal (supra) A
related to grant of liquor licences. The procedure adopted for such grant
were being challenged as being violative of Article 14 of the Constitution.
It was said by this Court:•
'But, while considering the applicability of Article 14 in such a
case, we must bear in mind that, having regard to the nature B
of the trade or business, the Court would be slow to interfere
with the policy laid down by the State Government for grant
of licences for manufacture and sale of liquor. The ·court
would, in view of the inherently pernicious nature of the com-
modity allow a large measure of latitude to the State Govern- c
ment in determining its policy of regulating, manufacture and
sale of liquor would essentially be a matter of economic policy
where the court would hesitate to intervene and strike down
what the Staie Government has done, unless it appears to be
plainly arbitrary, irrational or mala fide."
D
But even in that case it was said:-
No one can claim as against the state the right to carry on trade
or business in liquor and the State cannot be compelled to part
with its exclusive right or privilege or manufacturing and selling E
liquor. But when the State decides to grant such right or
privilege to others the State cannot escape the rigour of Article
14. It cannot act arbitrarily or at its sweet will. It must comply
with the equality clause while granting the exclusive right or
privilege of manufacturing or selling liquor."
F
The execution of the supplemental agreement cannot be considered
at par with the grant of a liquor licence, which related to any economic
policy.
So far the case of Sachidanand Pandey.v. State of West Bengal (supra) G
is concerned, in a public interest litigation the grant of lease in favour of
Taj Group of Hotels for establishment of a Five Star Hotel at Calcutta had
been challenged. It was said:-
"It is to be seen that in the present case no one has come
· forward alleging that he has been discriminated against and his H
98 SUPREME COURT REPORTS [1993) 1 S.C.R.
A fundamental right to carry on business had been affected. The
very nature of the construction and establishment of a Five Star
Hotel is indicative of a requirement of expertise and sound
financial position on the part of those who might offer to
construct and establish them. The decision taken by the All
India Tourism Council was an open decision well known to
B everyone in the hotel business. Yet no one except the !TDC
and the Taj Group of Hotels had come forward with any
proposal. We have it in the record that the Oberoi Group of
Hotels already had a Five Star Hotel in Calcutta while the
Welcome Group of Hotels were making their own private
c negotiations and arrangements for establishing a Five Star
Hotel. In the circumstances, particularly in the absence of any
leading hoteliers coming forward, the Government of West
Bengal was perfectly justified in entering into negotiation with
the !TDC and the Taj Group of Hotels instead of inviting
tenders."
D
But at the same time it was said:-
'On a consideration of the relevant cases cited at the bar the
following propositions may be taken as well established : State-
E owned or public-owned property is not to be dealt with at the
absolute discretion of the executive. Certain precepts and prin-
ciples have to be observed. Public interest is the paramount
consideration. One of the methods of securing the public in-
terest, when it is considered necessary to dispose of a property,
F is to sell the property by public action or by inviting tenders.
Though that is the ordinary rule, it is not an invariable rule.
There may be situations where there are compelling reasons
necessitating departure from the rule but then the reasons for
the departure must be rational and should not be suggestive of
discrimination. Appearance of public justice is as important as
G doing justice. Nothing should be done which gives an ap-
pearance of bias, jobbery or nepotism.'
._/
In the case of G.B. Mahajan v. lalgaon Municipal Council, (supra),
a piece of land had been received by the Town Municipal Counci~ Jalgaon,
H by way of gift. Initially it had been put to the use Agricultural Produce
SlERLlNG COMPUTERS v. M & N PUBLICATIONS [N.P. SINGH, J.] 99
Market Committee, as a cotton and wholesale fruit and vegetable market. A
In terms of the gift, in order to put the land in a better and more profitable
\' use the Municipal Council contemplated a project comprising, inter alia,
erection of a eommercial complex. They also persuaded for cliange in the
terms of the deed of gift subject to condition that heirs should be given five
shops free of cost in the commercial complex. The scheme contemplated
B
that a developer would execute the entire project at his own cost and would
make allotments to the shopkeepers td whom the Municipal Council had
given assurances of alternative accommodation at fixed rates. The
_/
developer was also to provide the 17 floors of the administrative building
free. of cost to the municipality. The choice of the respondent No. 6 as
developer for the project aforesaid was questioned. This Court arrived at c
the following conclusion:-
'In rqiard to the allegation that the project scheme was tailored
to .suit respondent 6 alone or that the project as put to tender
---< did not admit of tenders on fll<ed comparable parameters, we
fmd no merit. Sri K.K. Singhvi submitted that the tender papers
D
were prepared by reputed architects and the precise points on
which comparative quotations were invited were specifically
incorporated in the tender papers. The point again is that no
other tenderer expressed any grievance. The tenders were such
that the tenderer could identify the terms which form the basis E
i-' of comparative evaluation. The charge of arbitrariness cannot
be upheld. Tests to be applied in a given case may be influenced
by the extent to which a decision is supported by a democratic
unanimity which evidences the decision - granted, of course,
the power.'
F
From the facts of the aforesaid case it shall appear that Municipal
Council had invited competitive proposals as to the ways in which the
potentiality of the land could commercially be exploited and had also
competitive plans and designs and ultimately respondent No. 6 was
entrusted with the execution of the said scheme. G
The cases aforesaid on which reliance was placed on behalf of the
\-, appellants, have also reiterated that once the State decides to grant any
right or pri,ilege to others, then there is no escape from the rigour of
Article 14; the executive does not have an absolute discretion, certain H
100 SUPREME COURT REPORTS [1993) 1 S.C.R.
A precepts and principles have to be followed, the public interest being the
paramount consideration. It has also been pointed out that for securing the
public interest one of the methods recognised is to invite tenders affording
opportunity to submit offers for consideration in an objective manner.
However, there may be cases where in the special facts and circumstances
·B and due to compelling'reasons which must stand the test on Article 14 of
the Coµstitution, departure of the aforesaid rule can be made. This Court
while upholding the contracts by negotiation in the cases referred to above
has impressed as to how in the facts and circumstances of those. cases the
decisions taken by the State and the authorities concerned were
C reasonable, rational and in the public interest. The decisions taken in those
cases by the authorities concerned, on judicial scrutiny were held to be free
from bias, discrimination and under the exigencies of the situation then
existing to be just and proper. On the basis of those judgments it cannot
be urged that this court has left to the option of the authorities concerned
D whether to invite tenders or not according. to their own discretion and to
award contracts ignoring the procedures which are basic in nature, taking
into account factors which are· not only irrelevant but detrimental to the
public interest.
From the statements made in the affidavit filed on behalf of the
E MTNL before Iha High Court and from the relevant minutes of the Board
of the MTNL which were produced before the High Court during the
course of the hearing and copies thereof have also been produced by one
of the appellants before this Court, it appears that the Board in its 28th
meeting held on 28.12.1990 considered the default made by UIP in not
F publishing the directories in terms· of the agreement every year. The Board
took note of the fact that UIP had run into financial difficulties and cash
flow problem. The banks who had advanced loans to them ltave not yet
received back the payments. The paper mills were not willing to supply r -
paper on credit. The printing presses were also not prepared to print the
G directories without getting advance payments. In this background the
Board considered the three options (1) to invoke the penalty clause and
print the Directory by the MTNL at the risk and cost of the UIP. (ii)
provide the necessary loan secured or unsecured to print the directories,
(iii) to terminate the contract and award the work to some other contrac-
H tor. The matter was again considered in the 29th meeting of the Board held
STERLING COMPUTERS v. M & N PUBLICATIONS [N.P. SINGH, J.] 101
on 29th March, 1991 where a note was put up saying that if the contract A
with the UIP was terminated and a decision was taken to go in for a fresh
-(
' tender. the following problems may arise (i) UIP/UDI may put legal
obstacles in retendering, (ii) the response for. printing and delivering the
directories free of cost and also paying royalty may be poor from the
parties, considering the failure of the present experiment and prohibitive B
increase in the cost of paper and printing, (iii) the concept of the yellow
pages may suffer a big set back and may make it unattractive to the
advertisers because of the loss of confidence. The Board in its 29th meeting
discussed the aforesaid agenda and took a decision that MTNL has no
option but to grant loan to UIPIUD! to help them to print out the c
directories. The Board also felt that grant of the loan to OIP/UDI was
quite risky but the said distress measure had to be taken to avoid any
stalemate and was in the large interest of the MTNL. The matter was
further discus.sed in the 31st meeting of the Board held on 6th August,
1991. The agenda note for this meeting after stating the aforesaid cir- D
cumstances said that UIP had approached MTNL once again with a
package of proposals in supersession of their all requests/proposals made
earlier, so that they may be bailed out of their financial problems and
assuring uninterrupted supply of directories for the revised period of
contract. The note recorded that proposal had also been received from
E
Sterling through UDI to print and publish the directories of the MTNL
with their financial .support. A decision was taken in order to enable the
MTNL to salvage the contract and get the job executed without further
delay and to avoid consequent inconvenience to the customers, to negotiate
on revised terms with UIP/UDl/Sterling. There is no dispute that the
Board in its 32nd meeting held on 19th August, 1991 approved the new
F
terms and conditions, and took a decision that an extension of the contract
be given to UIP/UDI and Sterling for printing the 13 issues of directories
for Delhi and Bombay. On basis of that decision the impugned supplemen-
tal agreement was executed on 26th September, 1991.
G
In the facts and the circumstances of the present case it has to be
held that the MTNL has applied the "irrelevant considerations" doctrine
while granting a fresh contract for a period of five years through the
supplemental agreement dated 26th September, 1991, because it has failed
to tak,e into account considerations which were necessarily relevant i.e. H
102 SUPREME COURT REPORTS [1993) 1 S.C.R.
A following the rule of inviting tenders while granting the contract for a
further period of five years on fresh terms and conditions and has taken -
~
into account irrelevant consideratiollS that (i) if the contract is terminated
and a decision is taken for a fresh tender, the UIP/UDI may put legal
obstacles in retenderjng, (ii) the respo11Se for printing free of cost and also
B paying the royalty may be poor (iii) the concept of the yellow pages may
suffer a big set back and may make it unattractive to the advertisers
because of the loss of confidence. MTNL should have been consdous of
the fact that admittedly the UIP/UDI had miserably failed in performing
their part of the contract for a period of five years, inasmuch as they were
c required to publish between the period 1987-1991 one issue of the main
directory every year for Delhi and Bombay apart from supplementary.
Instead of that they published for the year 1987 directories for Delhi and
Bombay after a delay of seven months and six months respectively. The
Delhi issue of directory for the year 1988 was published only in August,
D 1990. So far B'lmbay is concerned there was no publication for the years
1988, 1989, 1990 and 1991. The MTNL also overlooked the fact that the
"-
period of contract had already expired and as such the l'v!TNL was in error
in treating the supplemental agreement as only an extension of the original
agreement. Learned counsel appearing for the appellants did not dispute
and contest that by the supplemental agreement the period of contract
E
which had expired in 1991 was extended upto 1997/1998 for printing the
directories for Delhi and Bombay, and that the terms and conditions were
different. For the period 1991-1997 additional royalty which had been
agreed to be paid by the UDI/UIP/Sterling was only Rs. 10 crores whereas
for the period 1987-1991 it was Rs. 20.16 crores.
F
Philanthropy is no part of the management of an undertaking, while
dealing with a contractor entrusted with the execution of a contract. The
r--.
supply of the directories to public in time, was a public service which was
being affected by the liberal attitude of the MTNL and due to the con-
G donation of delay on the part of the UIP/UDI. There was no justification
on the part of the MTNL to become benevolent by entering into the
supplemental agreement with no apparent benefit to the MTNL, without
inviting fresh tenders from intending persons to perform the same job for
the next five years. Public authorities are essentially different from those -I
H of private perscns. Even while taking decision in respect of commercial
STERLING COMPUTERS v. M & N PUBLICATIONS [N.P. SINGH, J.] 103
-../ transactions a public authority must be guided by relevant considerations A
\. and not by irrelevant ones. If such decision is influenced by extraneous
considerations which it ought not to have taken into account the ultimate
decision is bound to be vitiated, even if it is established that such decision
had been taken without bias. The contract awarded for the publication of
the directories had not only a commercial object but had a public element B
at the same time i.e. to supply the directories to lakhs of subscribers of
telephones in Delhi and Bombay, every year within the stipulated time free
?'
of cost. In such a situation MTNL could not exercise an unfettered discre-
tion after the repeated breaches committed by UIP/UDI, by entering into
a supplemental agreement with the sterling for a fresh period of more than
five years on terms which were only beneficial to UIP/UDUSterling with
c
corresponding no benefit to MTNL, which they have realised only after the
High Court went into the matter in detail in its judgment under appeal.
-...1.·
The supplemental agreement is really a fresh agreement with fresh
terms and conditions which has been entered by MTNL without inviting D
any tender for the same. The supplemental agreement has been entered to
benefit the parties who are admittedly defaulters by not publishing direc-
tories for Bombay for the years 1988, 1989, 1990 and 1991 and for Delhi
for the years 1989, 1990 and 1991 although they had collected several crores
-.J. of rupees for the advertisements for the directories to be published in the E
aforesaid years. We fail to understand as to how a fresh contract for a
period upto 1997/1998 was awarded to UIP/UDl/Sterling in the garb of an
agreement for extension of the period of the original agreement taking into
account irrelevant factors as already enumerated above. If the supplemen-
ta! agreement has been executed without following the procedures which
F
are essential in view of the repeated pronouncements of this Court and
---"\ taking into consideration irrelevant factors, then can it be said that
'"decision making process' before the supplemental agreement was entered
into was consistent with the requirement of Article 14 of the Constitution?
In such a situation there is no scope for arguement that any interference
by Court shall amount to an intervention like a court of appeal. Once the G
process through which the supplemental agreement was executed is held
)· to be against the mandate of Article 14 of the Constitution, the supplemen-
ta! agreement shall be deemed to be avoid.
The appellants also took an objection to the maintainability of the H
T
104 SUPREME COURT REPORTS [1993] 1 S.C.R.
A writ application, on the ground of delay and laches. It was poit)ted out that ~
supplemental agreement was entered into on 26th September, 1991 ' ...
whereas the Writ Petition was filed before the High Court on 19th May,
1992, although during this period the petitioners had full knowledge about
the supplemental agreement. According to the petitioners, the supplemen-
B tal agreement was kept as a guarded secret by the MTNL as well as
UIP/UDI/Sterling and it is only in April 1992 the petitioners could know
some details of the supplemental agreement. In this connection our atten-
tion was drawn to an advertisement published on 27th September, 1991
saying that official Bombay directory was being released in December, 1991
and Delhi telephone directory in January, 1992. That advertisement was
c given on behalf of the UDI only. In the body of the advertisement it was
mentioned that UD I and Sterling have made all necessary arrangements to
ensure that every subscriber receives up-to-date directory in Delhi and
Bombay in time. It was urged on behalf of the writ-petitioners that under 'y
the supplemental agreement it was the Sterling who had been given the
D right to publish the directories and as such in normal course the adver-
tisement should have been given in the paper on behalf of the Sterling but
only with an ulterior motive the advertisement was published on behalf of
the UDI. Our attention was also drawn to several communications ad-
dressed by the Department of Telecommunications, Madras, to the dif-
E ferent authorities of the MTNL making enquiries as to whether the Sterling
.\-
had been entrusted with the printing of directories for Delhi and Bombay,
as tenders for printing and supply of main telephone directories with yellow
pages on turnkey basis were under consideration at Madras. The aforesaid
queries were made in the month of December, 1991. The office of the Chief
F General Manager, MTNL, on .2nd January replied to the Divisional En-
gineer, Madras Telephones, saying "perhaps, MTNL, Corporate Office ,,..-..-
have entrusted some job of printing of telephone directories to M/s Sterling
Computers Ltd. In this connection, you are therefore requested to contact
Chairman-cum-Managing Director, MTNL". A letter dated 30.12.1991 was
G addressed by Sterling to the Divisional Engineer, Madras Telphones, in
reply to the query whether they had been entrusted with the printing and
supply of telephone directories, saying "Much as we would like to provide
·-{
you a copy of the order of Mahanagar Telephone Nigam Ltd. we are
unable to do so due to certain circumstances beyond our control." Refer-
H ence was made to yet another communication dated 30.12.1991 addressed
STERLING COMPUTERS v. M & N PUBLICATIONS [N.P. SINGH, J.] 105
- ---( by MTNL to Deputy General Manager, Madras Telephones, saying that so
far the Sterling Computers were concerned "they have been allowed a
sub-contract by Mis UDI for printing the directories for Delhi and Born-
bay", without giving the details of any such contract. It was pointed out on
A
behalf of the the writ-petitioners that an affidavi4 was filed on behalf of
the Sterling, before the Madras High Court in connnection with another B
Writ Petition on 19.4.1992, in which the details of the supplement agree-
ment were disclosed. The Writ Petition in the Delhi High Court was filed
on 19.5.1992. Under the circumstances mentioned -above it is difficult to
reject the Writ Petition on the ground of delay and !aches.
As already mentioned above, Mr. Venugopal, the learned counsd c
appearing for the writ-petitioners, offered an amount of Rs. 60 crores on
behalf of the writ-petitioners as royalty to the MTNL for printing the
-·--< directories for Delhi and Bombay for the period of the supplemental
agreemen4 if the said job is entrusted to them on the same terms and
conditions. For that period the UIP/UDl/Sterling have offered only Rs. 10 D
crores as additional royalty. This Court could have considered the
desirability of directing the MTNL to consider the said offer of Rs. 60
crores on behalf of the writ-petitioners by according to us, if any such
...,_' direction is given ·and on basis of such direction the job of printing the
directories for the period in question is given to the writ-petitioners, the E
procedure so adopted shall suffer from the same vice. The MTNL will .
enter into an agreement with the writ-petitioners without inviting tenders
and without offering opportunities to others who may be interested in the
printing of the directories for Delhi and Bombay. As such while affirming
the judgement of the High Cour4 we direct that all steps should be taken
F
----.' by MTNL as early as possible for publishing the directories for Delhi and
Bombay so that public in general should not suffer any more. The appeals
are accordingly dismissed but in the facts and circumstances of the case
there shall be no order as to costs.
Before we part with the judgment we shall like to strike a note of G
caution. It is a matter of common experience that whenever applications
"f · relating to awarding of contracts are entertained for judicial review of the
administrative action, such applications remain pending for months and in
some cases for years. Because of the interim orders passed in such applica-
tions, the very execution of the contracts, are kept in abeyance. The cost H
I
106 SUPREME COURT REPORTS (1993) 1 S.C.R.
A of different projects keep on escalating with passage of time apart from
the fact that the completion of the project itself is deferred. This process
not only affects the public exchequer but even the public in general who
..
are deprived of availing the facilities under different projects. As such it
need not be impressed that while exercising the power of judicial review
B in connection with contractual obligations. Courts should be conscious of
the urgency of ihe disposal of such matters, otherwise the power which is
to be exercised in the interest of the public and for public good in some
cases becomes counter-productive by causing injury to the public in
general.
N.V.K. Appeals dismissed.
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