JUDGMENT
R.P. Singh, J.
1. By means of this writ petition the petitioner has prayed for quashing of the sale of the petitioner’s Cold Storage in pursuance of tender notice dt. 22-12-87 and further prayed that the execution of the sale deed on 22-2-88 in pursuance of the said notice may be cancelled and may not be given effect to.
2. The facts of the case briefly stated are that the petitioner who is a registered firm carrying on the business of running of cold storage and Ice Factory at Gola Bazar, Gorakhpur, took a loan of Rs. 9,11,000/- from the U.P. Financial Corporation, Respondent I, in the year 1978 which was to be paid in instalments. However, due to non-supply of electricity to the cold storage the petitioner is alleged to have suffered huge loss as the potato stored in the cold storage was damaged and the petitioner had to pay a huge compensation to the fanners who had stored their potato in the cold storage. It is alleged that the petitioner had deposited Rs. 8 lacs between the period 1978 to 1987 towards the loan taken by him in instalments and since the petitioner could not pay the remaining instalments in time due to huge losses suffered by him, an advertisement was made in ‘Dainik Jagran’ on 22-12-87 and in ‘Aaj’ on 29-12-87 inviting tenders for the sale of the petitioner’s cold storage and the offer was to reach the Regional Manager of U.P. Financial Corporation, Gorakhpur on 4-1-88 up to 3 P.M. The petitioner on coming to know of the intended sale made a representation to the State Minister for Small Scale Industries, U.P. that the petitioner had suffered huge losses on account of the potato being damaged due to non-supply of the elctricity as a result of which the petitioner had to pay huge compensation to the farmers and hence prayed that the cold storage may not be put to sale and some time may be granted to pay up the remaining dues upon which the Minister concerned on 27-12-87 ordered the Regional Manager Respondent 2 to stop putting the cold storage to auction and directed that the instalments may be rescheduled to enable the petitioner to pay up the arrears. The Minister concerned on 2nd January, 1988 also wrote to the Managing Director of the U.P. Financial Corporation that in view of the huge losses suffered by the petitioner and payment of compensation to the farmers, the sale of the unit may be stayed The Minister concerned again wrote a letter on 23-2-1988 addressed to the Managing Director of the Corporation that in spite of his letter not to auction the petitioner’s cold storage, the same has been sold and directed him not to confirm the sale till 31-3-1988 as the petitioner wants time till that date to pay up the arrears of instalments due. However, in spite of the repeated directions of the Minister concerned, Respondents 1 and 2 accepted the tender of Respondent 3 for sale of the petitioner’s Durgesh Cold Storage for a sum of Rs. 16 lacs and confirmed the sale on 22-2-88.
3. The petitioner’s case is that in spite of the direction issued by the Minister concerned the petitioner’s cold storage was sold by inviting tender in undue haste in spite of repeated orders passed by the Minister concerned to give the petitioner time till 31-3-1988 to pay up the instalments due and that the only tender received for sale of the petitioner’s cold storage was of respondent No. 3 and that the cold storage was not sold by open auction in which higher bids have been made by the public as the property was worth about Rs. 60 lacs and had been sold to Respondent 3 for a song even without intimating the petitioner of the offer of respondent No. 3 as the petitioner could be given an opportunity to make the payment of the instalments due to avoid sale of the cold storage. Under the terms of the tender accepted, the Respondent 3 was to deposit only half the amount that is Rs. 8 lacs and the remaining half amount was to be paid by respondent No. 3 in three years by paying in six equal half-yearly instalments and thus the sate deed was executed even without payment of the entire amount by Respondent 3. The petitioner’s case is that the petitioner’s cold storage should have been sold by public auction which ensures participation of the general public in the auction as a result of which the property fetches the highest price and also ensures fairness in the activities of the public authorities in selling the property. The petitioner’s case is that in the present case the sale has been made by inviting tender in undue haste in which the only tender negotiated was that of Respondent 3 and even though the property was a very valuable property of about Rs. 60 lacs, the same has been sold for a paltry amount resulting in great loss and prejudice to the petitioner.
4. The case of the petitioner was contested by the respondents espondents on the ground that the sale was made by tender which has the shade of a public auction. It was advertised in the news paper D/- 22-12-1987 and 28-12-87 inviting tenders till 4th Jan., 1988 and that the sale has been made in i a fair manner and it is denied that the property is worth about Rs. 60 lacs. It is further submitted that the Minister concerned could not direct the U. P. Financial Corporation to postpone the sale in order to enable the petitioner to pay up the instalments due and petitioner having not paid the arrears of instalments due, the cold storage was rightly sold in favour of respondent No. 3.
5. Heard Sri B. D., Madhyan learned counsel for the petitioner and Sri G. N. Verma for respondent No. 3 and Sri V. B. Singh for respondent No. 1.
6. Learned counsel for the petitioner firstly submitted that sale of the petitioner’s cold storage should not have been made in undue haste by inviting tender but by open auction publicly when the intention is to get the best price and sale by an open auction could ensure not only the highest price for the property but also ensure fairness in the activities of the public authority in conducting the sale. Secondly, it is submitted that when the Minister concerned wrote to Respondents 1 and 2 to postpone the sale of the cold storage in order to enable the petitioner to pay up the instalments due which he had not been able to pay due to huge losses suffered by him as a result of damage to the potato kept in the cold storage due to non-availability of elactricity and had to pay huge compensation to the farmers who had kept potato in the cold storage, it was proper in the circumstances that the petitioner should have been given short time to pay up the dues and though the Minister concerned had written to to the Respondents 1 and 2 to postpone the sale of the petitioner’s cold storage till 31-3-88 and still the sale deed was registered in favour of Respondent 3 in hot haste on 22-2-88 for a paltry amount of Rs. 16 lacs even though the property was worth about Rs. 60 lacs.
7. Coming to the first point regarding the validity of the sale of the cold storage by tender, the learned counsel for the petitioner invited our attention to the case of the Fertiliser Corporation Kamgar Union v. Union of India, AIR 1981 SC 344 where at page 350 Chandrachud C. J. observed thus : —
“We want to make it clear that we do next doubt the bona fides of the Authorities, but as far as possible, sales of public property, when the intention is to get the best prick ought to take place publicly. The vendors are not necessarily bound to accept the highest or any other offer but the public at least gets the satisfaction that the government has put all its cards on the table”.
In Sachidanand Pandey v. State of West Bengal, AIR 1987 SC 1109 at page 1133 Chinnappa Reddy, J. summarised the proposition in the following manner : —
“On a consideration of the relevant cases cited at the bar the following proposition may be taken as well established: State owned or public owned porperty is not to be dealt with at the absolute discretion of the executive. Certain precepts and principles have to be observed. Public opinion is the paramount consideration. One of the methods of securing the public interest when it is considered necessary to dispose of a property is to sell the property by public auction 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 doing justice, Nothing should be done which gives an appearance of bias, jobbery or nepotism.”
IN R. D. Setty v. International Airport Authority of India, AIR 1979 SC 1628 at page 1642 Bhagwati, J. observed thus: —
“Now, obviously where a Corporation is an instrumentality or agency of the government, it would in the exercise of its power or discretion, be subject to the same constitutional or public law limitation as government. The rule inhabiting arbitrary action of the government which we have discussed above must apply equally where such Corporation is dealing with the public whether by way of giving jobs or entering into contracts or otherwise and it cannot act arbitrarily and enter into relationship with any person like at its sweet will, but its action must be in conformity with some principles which meets the test of reason and relevance”.
In State of U. P. v. Shiv Charan Sharma, AIR 1981 SC 1722 the Court observed that public auction with open participation and reserved price guarantees public interest being fully subserved. In Kasturi Lal Laxmi Reddy v. State of Jammu and Kashmir, AIR 1980 SC 1992 the court observed thus : —
“Where any government action fails to satisfy the test of reasonableness and public interest discussed above and is found to be wanting in quality of reasonableness or lacking in the element of public interest it would be liable to be struck down as invalid. 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 interest. The 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”.
8. In Ram and Shyam Company v. State of Haryana, AIR 1985 SC 1147 the Court held that a unilateral offer secretly made, not correlated to any reserved price made by the 4th respondent after making false statement in the letter was accepted without giving any opportunity to the appellant either to raise the bid or to point out the falsity of the allegations made by the fourth respondent as also the inadequacy of his bid. It was held that the state failed in discharing its administrative functions and the appellant in j that case suffered an unfair treatment and thereby violating the fundamental principles of fair play in action.
9. In view of the string of authorities as given above, we have to see if the respondents 1 and 2 have acted fairly in selling the cold storage by inviting tender in favour of respondent No. 3 and thus to examine the action of the Respondents 1 and 2 on the touchstone of reasonableness and public interest. We find in the present case that the only offer of tender received in the present case was that of respondent 3. In the advertisement dt. 22-12-87 and 29-12-87 inviting tenders till 4th of Jan., 1988, it appears that the time given for inviting tenders was too short and the very fact that only one tender was received in the present case does not indicate fairness. It also shows that the best price could not be received of the cold storage sold It is necessary in such cases that the public at least should get the satisfaction that the Corporation has put all its cards on the table and has conducted the sale in a manner so as to enable the public at large to participate in the sale and offer their best price for the same. We find that the Supreme Court has deprecated the sale of the property by tender or by private negotiation and has emphasized that such sale should be made by open auction and not by negotiation (see C. Rami Reddy v. Govt. of A. P., AIR 1986 SC 1158). In the circumstances in order to ensure the sale of the property for the best price and to ensure the participation of public in an open auction it was proper for the respondents 1 and 2 to have sold the cold storage in an open public auction after due publication and notice and the sale by inviting tender in the circumstances does not appear to be appropriate in public interest or fair causing great prejudice, loss and hardship to the petitioner.
10. Sri V. B. Singh, learned counsel for the respondent submitted that the sale by tender in the present case has shade of an open auction as it was made after advertisement in the newspaper and hence the sale in the present case could not be said to be unreasonable or unfair or invalid. The learned counsel for the respondent placed reliance on Haji T.M. Hassan v. Kerala Financial Corporation reported in AIR 1988 SC 157 where it was held that the public property owned by the State or by any instrumentality of the state should be generally sold by public auction or by inviting tenders. Observance of the rule, not only fetches the highest price for the property but also ensures fairness in the activities of the State and public authorities. It was further held that public authority should undoubtedly act fairly and nothing should be done to give the impression of bias or favouritism. In this case emphasis has been laid on the point that the authorities should act in a bona fide manner and the sale of the property, when the intention is to get the best price, ought to be made publicly. On the facts of the present case we find that the tender offered by respondent 3 was the sole tender which does not ensure that the offer of the highest or best price was received after due publicity but on the contrary it indicates that the public had not been given proper notice of the sale of the property inviting them to participate in an open auction and the sale has been made by negotiation and inviting tender for a price which according to the petitioner, is far below the price that could be expected for such a valuable property. Hence when the intention is to get the best price, the sale of the property ought to take place publicly and in an open auction where large number of people could offer their bids for the unit in an open auction. Hence we are of the opinion that the circumstances of the present case does not inspire confidence that the sales had been conducted in a fair manner publicly ensuring best price for the cold storage.
11. Now coming to the second point we find that on the representation made by the petitioner that he suffered huge losses on account of the damage to the potato kept in the cold storage due to non-supply of electricity current and payment of huge compensation to the farmers who were owners of the potato, the Minister concerned had written to Respondents 1 and 2 to postpone the sale and confirmation of cold storage till 31-3-88 till which date the petitioner wanted to pay up the entire dues and in spite of the repeated directions of the Minister concerned the sale was confirmed in post-haste on 22-2-88 even though the Respondent 3 did not pay the entire amount of sale consideration but only paid half the amount, that is, Rs. 8 lacs and the remaining amount was to be paid in six equal half-yearly instalments in three years. The petitioner’s case is that when the petitioner was himself prepared to pay the entire instalments due and had arranged the funds after negotiation with some party and was ready to deposit the entire amount due to the Corporation and the Minister concerned had also written to the U. P. Finanical Corporation to that effect, the petitioner relied upon the order of the Minister concerned hoping that he had been granted time till 31-3-88 to pay up the amount but the sale was hurriedly executed in undue haste on 22-2-88 even before the expiry of the time granted by the Minister concerned i.e. 31-3-88. The learned counsel for the petitioner submitted that if the amount had to be paid in instalments as was allowed to respondent 3, the loan could have been re-scheduled and the petitioner may have been allowed an opportunity to pay up the balance of instalments on the re-scheduled loan and thus save his valuable property from being sold for a song as according to the petitioner the property was worth about Rs. 60 lacs which was sold for a paltry amount. We find merit in this submission of the learned counsel for the petitioner. When the Minister had directed the U. P. State Financial Corporation Respondent 1 to postpone the confirmation and sale of the property till 31-3-88, propriety demanded that the respondents 1 and 2 should have postponed the execution and confirmation of the sale till 31-3-88 enabling the petitioner to pay up the entire dues. The intention of Respondents 1 and 2 was only to realise its dues and when the petitioner had prayed that the petitioner may be allowed some small reasonable time to pay up the entire dues which could not be paid by the petitioner on account of unforeseen circumstances, and the Minister concerned had also written to respondents 1 and 2 to allow the petitioner to pay up the amount and not to confirm the sale till 31-3-88, it was lit and proper to have given the petitioner an opportunity to pay up the remaining dues find at least to give an opportunity to the petitioner to pay up the dues on the same instalments which was allowed to Respondent 3 so that the petitioner could save his valuable property from being sold.
12. The learned counsel for the petitioner stated before us that the petitioner is prepared to pay up the entire amount dues to the Corporation within a period of three months. In that view of the matter we think it just and fair to allow the petitioner to pay up the entire dues within three months from the date of the delivery of the judgment. In case the petitioner does not pay the entire amount due within a period of three months from the date of the delivery of the judgment, it would be open to the Respondents 1 and 2 to sell the cold storage by an open auction publicly after due publication and notice,
13. In the result the writ petition succeeds and is allowed. The sale of the Durgesh Cold Storage and Ice Factory which was confirmed on 22-2-88 in favour of respondent 3 is quashed and shall not be given effect to and the Respondents 1 and 2 are directed that in case the petitioner deposits the entire amount of instalments due within a period of three months from the date of the delivery of the judgment, to release the Durgesh Cold storage and Ice Factory in favour of the petitioner. However, in case the entire amount of instalments due is not paid up by the petitioner within a period of three months, as stated above, Respondents 1 and 2 should sell the cold storage publicly by an open auction after due publicity and notice in accordance with law.
14. Costs on parties.