{"id":202393,"date":"2010-03-05T00:00:00","date_gmt":"2010-03-04T18:30:00","guid":{"rendered":"https:\/\/www.legalindia.com\/judgments\/monson-job-manoj-vs-the-commissioner-on-5-march-2010"},"modified":"2016-11-04T11:30:21","modified_gmt":"2016-11-04T06:00:21","slug":"monson-job-manoj-vs-the-commissioner-on-5-march-2010","status":"publish","type":"post","link":"https:\/\/www.legalindia.com\/judgments\/monson-job-manoj-vs-the-commissioner-on-5-march-2010","title":{"rendered":"Monson Job @ Manoj vs The Commissioner on 5 March, 2010"},"content":{"rendered":"<div class=\"docsource_main\">Kerala High Court<\/div>\n<div class=\"doc_title\">Monson Job @ Manoj vs The Commissioner on 5 March, 2010<\/div>\n<pre>       \n\n  \n\n  \n\n \n \n  IN THE HIGH COURT OF KERALA AT ERNAKULAM\n\nWP(C).No. 14398 of 2006(L)\n\n\n1. MONSON JOB @ MANOJ,\n                      ...  Petitioner\n\n                        Vs\n\n\n\n1. THE COMMISSIONER,\n                       ...       Respondent\n\n2. THE PROJECT OFFICER,\n\n3. GOVERNMENT OF INDIA,\n\n                For Petitioner  :SRI.S.ABDUL RAZZAK\n\n                For Respondent  :SRI.P.PARAMESWARAN NAIR,ASST.SOLICITOR\n\nThe Hon'ble MR. Justice T.R.RAMACHANDRAN NAIR\n\n Dated :05\/03\/2010\n\n O R D E R\n                      T.R. Ramachandran Nair, J.\n                   - - - - - - - - - - - - - - - - - - - - - - - -\n                      W.P.(C) No. 14398 of 2006-L\n                   - - - - -- - - - - - - - - - - - - - - - - - - - -\n               Dated this the 5th day of March, 2010.\n\n                                 JUDGMENT\n<\/pre>\n<p>      Aggrieved by the termination of contract at the risk and cost of the<\/p>\n<p>petitioner, the petitioner has filed this writ petition. The impugned order<\/p>\n<p>has been produced as Ext.P16.\n<\/p>\n<p>      2. The petitioner was awarded with the contract under the scheme<\/p>\n<p>framed by the Central Government, viz. Central Government Rural Roads<\/p>\n<p>Connectivity Scheme in Erattupettah Block. Ext.P1 is the copy of the<\/p>\n<p>agreement. The work involved is the construction of two roads. The<\/p>\n<p>agreement is dated 16.5.2002 and the time stipulated for completing the<\/p>\n<p>work was 24.1.2003. The site was formally handed over on 23.5.2002, but<\/p>\n<p>the petitioner contends that the initial levels were reported for sanction of<\/p>\n<p>the Superintending Engineer only on 7.9.2002 as evidenced by Ext.P2. By<\/p>\n<p>Ext.P3, the Superintending Engineer approved the initial levels on<\/p>\n<p>20.11.2002. The work was started accordingly and the various part bills<\/p>\n<p>have been sanctioned to him as evidenced by Exts.P4 to P6.<\/p>\n<p>      3. There was an inspection by the Joint Director, NRRDA (National<\/p>\n<p>Rural Roads Development Agency) and the inspection report has been<\/p>\n<p><span class=\"hidden_text\">wpc 14398\/2006                        2<\/span><\/p>\n<p>produced as Ext.P7.       The inspection report showed that there was a<\/p>\n<p>suggestion for changing the alignment with reduced gradient and to prepare<\/p>\n<p>a revised estimate.\n<\/p>\n<p>      4. Thereafter, the Project Officer, the second respondent herein,<\/p>\n<p>who is a party to Ext.P1 agreement, requested the first respondent for<\/p>\n<p>sanction to complete the road as per the estimate already sanctioned and<\/p>\n<p>approved. The above proposal was made stating that the land owners are<\/p>\n<p>not willing to surrender more agricultural land for the construction of the<\/p>\n<p>road and 80% of the works have been completed. The petitioner submits<\/p>\n<p>that in the light of these developments, the work had to be stopped awaiting<\/p>\n<p>further orders.      The first respondent addressed the third respondent,<\/p>\n<p>Ministry of Rural Development, Government of India, in the matter for<\/p>\n<p>giving sanction to complete the road as per the already sanctioned estimate.<\/p>\n<p>This was followed by another inspection and the same is evident from<\/p>\n<p>Ext.P10 letter issued by the Director addressed to the Prof. of Engineering,<\/p>\n<p>College of Engineering, Thiruvananthapuram, who was directed to conduct<\/p>\n<p>the site inspection.    On the basis of the inspection, Ext.P11 report was<\/p>\n<p>forwarded by the second respondent to the first respondent.<\/p>\n<p>      5. As no further action was being taken in the matter, the petitioner,<\/p>\n<p>by Ext.P12 representation addressed to the second respondent requested to<\/p>\n<p><span class=\"hidden_text\">wpc 14398\/2006                        3<\/span><\/p>\n<p>take a decision without delay to complete the work after providing a hike<\/p>\n<p>in the rates also.       He approached this Court by filing W.P.(C)<\/p>\n<p>No.32624\/2005 which was disposed of by Ext.P13 judgment dated 5.1.2006<\/p>\n<p>directing the first respondent herein to take a decision in the matter in<\/p>\n<p>accordance with law, after affording an opportunity of being heard to the<\/p>\n<p>petitioner. Immediately, the petitioner was served with Ext.P14 notice by<\/p>\n<p>the second respondent informing him that the work has not been completed<\/p>\n<p>and unless it is completed within 15 days, the agreement will be cancelled.<\/p>\n<p>Ext.P15 is the communication by the Commissioner of Rural Development<\/p>\n<p>in answer to his representation stating that no hike in the rates is allowable.<\/p>\n<p>Finally, by Ext.P16, the work was terminated at his risk and cost and further<\/p>\n<p>it was proposed to recover the same by appropriate legal action.<\/p>\n<p>      6. The respondents have filed a counter affidavit justifying the order.<\/p>\n<p>      7. Heard Shri S.A. Razak, learned counsel for the petitioner and<\/p>\n<p>learned Govt. Pleader.\n<\/p>\n<p>      8. Shri S.A. Razak, learned counsel for the petitioner submitted that<\/p>\n<p>the view taken in Ext.P16 cannot be supported.           The petitioner was<\/p>\n<p>proceeding with the work in the right earnest and 80% of the work was<\/p>\n<p>completed to the satisfaction of all and there was no default on his part at<\/p>\n<p>all. At the time an inspection was conducted by the Central agency, viz. the<\/p>\n<p><span class=\"hidden_text\">wpc 14398\/2006                          4<\/span><\/p>\n<p>Joint Director who suggested a realignment, and thereafter he was asked to<\/p>\n<p>stop the work which is evident from Ext.P8 also. It is not a case where the<\/p>\n<p>petitioner, in violation of the obligations under the contract, had stopped the<\/p>\n<p>work. It is only at the instance of the concerned officials, the work had to<\/p>\n<p>be stopped. It is evident from the various communications that respondents<\/p>\n<p>2 and 3 were also seeking for the sanction of the Central agency to continue<\/p>\n<p>the work as per the sanctioned estimate without any modification, in view<\/p>\n<p>of the difficulty to get surrender of required land by the land owners and<\/p>\n<p>the said action was finalized only by Ext.P11 dated 8.3.2004. It is therefore<\/p>\n<p>submitted that the decision to terminate the contract at his risk and cost is<\/p>\n<p>clearly arbitrary. It is further pointed out that only after this Court directed<\/p>\n<p>the respondents to consider the representation filed as Ext.P12 as per<\/p>\n<p>Ext.P13 judgment, immediately Ext.P14 notice was issued even before the<\/p>\n<p>first respondent communicated their decision as per Ext.P15. It is submitted<\/p>\n<p>that the department is trying to wriggle out of their responsibilities in the<\/p>\n<p>matter by merely blaming the petitioner for the delay.            It is further<\/p>\n<p>contended that the stand taken in the counter affidavit that there was no<\/p>\n<p>direction to stop the work, is not correct and the same is belied by the<\/p>\n<p>contents of Ext.P8 and other documents.\n<\/p>\n<p>       9. What is pointed out in the counter affidavit and argued by the<\/p>\n<p><span class=\"hidden_text\">wpc 14398\/2006                        5<\/span><\/p>\n<p>learned Govt. Pleader is that there was no written communication to the<\/p>\n<p>petitioner to stop the work or to deviate from the programme and he was<\/p>\n<p>bound to complete the work and the communication between respondents<\/p>\n<p>1 and 2 and the Central agency are only routine communications and he<\/p>\n<p>ought to have completed the work.\n<\/p>\n<p>      10. Herein, some of the relevant aspects have to be discussed That<\/p>\n<p>the work was being earnestly performed by the petitioner is clear from<\/p>\n<p>Exts.P4 to P6 part bills evidencing payment for a total amount of nearly<\/p>\n<p>Rs.57 lakhs. Ext.P8 is the copy of the report forwarded by the second<\/p>\n<p>respondent to the first respondent after the Joint Director of the Central<\/p>\n<p>agency inspected the sites. In relation to Melukavumattom &#8211; Kalluvettam<\/p>\n<p>Road, it is stated as follows:\n<\/p>\n<blockquote><p>                 &#8220;Work of the above road is in good progress. 80% of the<\/p>\n<p>          formation of the road and protection work completed. Out of 10<\/p>\n<p>          culverts 6 Nos have been completed. Approximately Rs.30 lakhs<\/p>\n<p>          have been spent for the construction of the road. Most of the<\/p>\n<p>          inhabitants of this road are Scheduled Tribes. Work of the above<\/p>\n<p>          road is stopped as per the above note. Considering these facts,<\/p>\n<p>          gradient given to this road may be admitted and sanction may be<\/p>\n<p>          given to complete the road at the earliest as per the already<\/p>\n<p>          sanctioned and approved estimate.&#8221;\n<\/p><\/blockquote>\n<blockquote><p><span class=\"hidden_text\">wpc 14398\/2006                        6<\/span><\/p>\n<\/blockquote>\n<p>In regard to the second road, viz. Ottayeetti &#8211; Thazhathukattupara Road, the<\/p>\n<p>following are the contents of Ext.P8:\n<\/p>\n<blockquote><p>        &#8220;As per the above referred inspection note, gradient between 0.90m<\/p>\n<p>          and 800-1020m is steep and Joint Director has directed to re align<\/p>\n<p>          the portion. Land owners in the chainages of road are willing to<\/p>\n<p>          surrender the extra land free of cost for the construction of this<\/p>\n<p>          road. Instructions have already been given to Assistant Engineer,<\/p>\n<p>          Erattupetta Block for preparing the topographical survey and<\/p>\n<p>          revised estimate of this road. Construction has completed 80% of<\/p>\n<p>          th formation of the road. The construction of the road is in good<\/p>\n<p>          progress and formation of the road is nearing completion.&#8221;<\/p>\n<\/blockquote>\n<p>The above position may please be informed to Government of India and<\/p>\n<p>sanction may please be obtained to complete the work as suggested above.&#8221;<\/p>\n<p>      11.    Therefore, the following important aspects are clear from<\/p>\n<p>Ext.P8. It is based on the letter of the Joint Director, NRRDA and the<\/p>\n<p>inspection report. It is clear that in respect of these two roads, the Joint<\/p>\n<p>Director had directed to realign the work. Ext.P7 is the inspection report<\/p>\n<p>by the Central agency which will reveal that he had found that the gradient<\/p>\n<p>is too steep and therefore the topographical survey has to be conducted by<\/p>\n<p>the Project Implementing Unit to facilitate the realignment. Preparation of<\/p>\n<p>revised estimate has also been suggested. Therefore, the entire thing was<\/p>\n<p>dependent upon the preparation of revised estimate         after fixing the<\/p>\n<p><span class=\"hidden_text\">wpc 14398\/2006                         7<\/span><\/p>\n<p>realignment in respect of both the roads which is evident from a combined<\/p>\n<p>reading of Exts.P7 and P8. That is why in Ext.P8 it is specifically requested<\/p>\n<p>that approval may be granted for the estimate prepared, as difficulties<\/p>\n<p>arose with regard to the surrender of land by the land owners for<\/p>\n<p>construction of the roads as proposed by the Central agency. What is<\/p>\n<p>suggested in Ext.P8 is to obtain a sanction from the Central agency itself for<\/p>\n<p>completing the work in respect of these two roads as per the approved<\/p>\n<p>estimate. It is clear from Ext.P8 itself that the work has been stopped as per<\/p>\n<p>the note issued by the Central agency. It cannot therefore be said that<\/p>\n<p>stopping of the work is a unilateral act on the part of the petitioner. True<\/p>\n<p>that written communications have not been served on the petitioner to stop<\/p>\n<p>the work, but in the light of the inspection report of the Central agency it is<\/p>\n<p>clear that the work had to be stopped as the realignment had to be<\/p>\n<p>undertaken, if sanctioned.      This is further reinforced by the letter<\/p>\n<p>Ext.P9 from the first respondent to the Ministry of Rural Development,<\/p>\n<p>Government of India, viz. the third respondent herein.          This is dated<\/p>\n<p>10.12.2003. In respect of both these works, after referring to the inspection<\/p>\n<p>reports, sanction has been sought to complete the roads at the earliest, as<\/p>\n<p>already sanctioned and as per the approved estimate.          Therefore, it is<\/p>\n<p>ununderstandable as to how respondents 1 and 2 could have turned round<\/p>\n<p><span class=\"hidden_text\">wpc 14398\/2006                         8<\/span><\/p>\n<p>later to put the entire blame on the petitioner for stopping the work.<\/p>\n<p>       12. It is evident from Exts.P10 and P11 that the Central Agency<\/p>\n<p>wanted to conduct another inspection and deputed Dr. K.P. Isaac, Professor<\/p>\n<p>in Civil Engineering, College of Engineering, Thiruvananthapuram to<\/p>\n<p>inspect the site and to furnish a detailed report regarding the existing<\/p>\n<p>conditions and guidance given by him in this regard. That the work has<\/p>\n<p>already been delayed, is clearly stated in Ext.P10 itself and actually the<\/p>\n<p>Central agency wanted to depute him so as to complete the execution of<\/p>\n<p>the work after assessing the various local conditions. Again, the second<\/p>\n<p>respondent after the visit by the said Professor, addressed the first<\/p>\n<p>respondent by Ext.P1 stating that even after meetings of the land owners<\/p>\n<p>and the Panchayath members were called several times, the land owners are<\/p>\n<p>not willing to surrender land for additional length as suggested. It is<\/p>\n<p>evident from Ext.P11 that the State Technical Authority for PMGSY,<\/p>\n<p>during the visit, directed to demarcate additional length for easing the<\/p>\n<p>gradient.    Evidently, therefore, the same was under contemplation and<\/p>\n<p>therefore the petitioner could not have completed the work as per the<\/p>\n<p>original alignments.\n<\/p>\n<p>       13. These facts were pointed by the petitioner in Ext.P12 wherein he<\/p>\n<p>has stated that because of the delay there had been hike in the cost of diesel,<\/p>\n<p><span class=\"hidden_text\">wpc 14398\/2006                         9<\/span><\/p>\n<p>steel, cement, sand, rubble and metal.\n<\/p>\n<p>       14. Therefore, the stand taken in Exts.P14 and P15 by the respondents<\/p>\n<p>herein that there was no hurdle from any corner to complete the work in the<\/p>\n<p>stipulated time, cannot be accepted at its face value. This is clearly a<\/p>\n<p>distorted attempt to pass the buck to the petitioner for the delay occurred<\/p>\n<p>which was not because of any inaction on his part and 80% of the work was<\/p>\n<p>already over also. In fact, a reading of Ext.P16 shows that the notices have<\/p>\n<p>been issued to him only from 31.10.2005 onwards which is even after<\/p>\n<p>receipt of Ext.P12 request made by the petitioner. They were issued long<\/p>\n<p>period after Exts.P10 and P11 were addressed to the respective parties.<\/p>\n<p>This also justifies the conclusion that the work was stopped after the<\/p>\n<p>period of inspection by the Joint Director, NRRDA and as sanction was<\/p>\n<p>sought for by the first respondent from the Central Government to complete<\/p>\n<p>the work as per the original estimate. In fact, the Ministry agreed to<\/p>\n<p>proceed with the work only by Ext.R2(a) letter.         Para 2 of Ext.R2(a)<\/p>\n<p>evidences the decision of the Ministry in the following words:<\/p>\n<blockquote><p>        &#8220;&#8230;&#8230;this Ministry hereby agrees to allow the Executing Agency to<\/p>\n<p>          complete the road with gradients marginally more than the<\/p>\n<p>          exceptional gradient on limited stretches with necessary<\/p>\n<p>          cautionary boards indicating the steep gradient.    However, the<\/p>\n<p>          State Government may ensure that such instances of providing<\/p>\n<p><span class=\"hidden_text\">wpc 14398\/2006                        10<\/span><\/p>\n<p>          steep gradients beyond the permissible values should not get<\/p>\n<p>          repeated and the State Executing Agency has to prepare a<\/p>\n<p>          comprehensive DPR and make sure that all geometric parameters<\/p>\n<p>          are as per Rural Roads Manual for any project submitted for<\/p>\n<p>          consideration in future.&#8221;\n<\/p><\/blockquote>\n<blockquote>\n<\/blockquote>\n<p>Finally, it is requested that &#8220;further necessary action to complete the road<\/p>\n<p>work may please be taken accordingly.&#8221;\n<\/p>\n<p>      15. These are documents in support of the plea of the petitioner that<\/p>\n<p>he cannot be blamed at all for the stoppage of work and there was actually a<\/p>\n<p>proposal for realignment and to revise the estimate. What is attempted in<\/p>\n<p>the counter affidavit is to show that no written communications were issued<\/p>\n<p>to the petitioner to stop the work or deviate from the programme. The<\/p>\n<p>evidence, as above, shows the other way, especially Ext.P8 which records<\/p>\n<p>that the work remained stopped already, in view of the intervening<\/p>\n<p>developments.\n<\/p>\n<p>      16. In that view of the matter, the termination of the work at the risk<\/p>\n<p>and cost of the petitioner is clearly arbitrary and is without any application<\/p>\n<p>of mind and also without considering the relevant aspects.               Any<\/p>\n<p>administrative decision in such circumstances cannot survive.<\/p>\n<p>      17. The termination of the work at the risk and cost of the petitioner,<\/p>\n<p><span class=\"hidden_text\">wpc 14398\/2006                        11<\/span><\/p>\n<p>cannot therefore be upheld and the petitioner cannot be saddled with any<\/p>\n<p>liability for the loss and damages as indicated in Ext.P16. Hence, Ext.P16 is<\/p>\n<p>quashed. The learned counsel for the petitioner had submitted that various<\/p>\n<p>amounts towards bank guarantee, performance guarantee, redemption<\/p>\n<p>amount, security and balance payment are due to the petitoner. There will<\/p>\n<p>be a direction to the respondents to release the various amounts due to the<\/p>\n<p>petitioner towards bank guarantee,      performance guarantee, redemption<\/p>\n<p>amount, security and the balance payment, if any, for the work already<\/p>\n<p>done. The same will be quantified and disbursed within a period of three<\/p>\n<p>months from the date of receipt of a copy of this judgment.<\/p>\n<p>       The writ petition is allowed as above. No costs.\n<\/p>\n<\/p>\n<p>                                     (T.R. Ramachandran Nair, Judge.)<\/p>\n<p>kav\/<\/p>\n","protected":false},"excerpt":{"rendered":"<p>Kerala High Court Monson Job @ Manoj vs The Commissioner on 5 March, 2010 IN THE HIGH COURT OF KERALA AT ERNAKULAM WP(C).No. 14398 of 2006(L) 1. MONSON JOB @ MANOJ, &#8230; Petitioner Vs 1. THE COMMISSIONER, &#8230; Respondent 2. THE PROJECT OFFICER, 3. GOVERNMENT OF INDIA, For Petitioner :SRI.S.ABDUL RAZZAK For Respondent :SRI.P.PARAMESWARAN NAIR,ASST.SOLICITOR [&hellip;]<\/p>\n","protected":false},"author":1,"featured_media":0,"comment_status":"open","ping_status":"open","sticky":false,"template":"","format":"standard","meta":{"_lmt_disableupdate":"","_lmt_disable":"","_jetpack_memberships_contains_paid_content":false,"footnotes":""},"categories":[8,21],"tags":[],"class_list":["post-202393","post","type-post","status-publish","format-standard","hentry","category-high-court","category-kerala-high-court"],"yoast_head":"<!-- This site is optimized with the Yoast SEO plugin v27.3 - https:\/\/yoast.com\/product\/yoast-seo-wordpress\/ -->\n<title>Monson Job @ Manoj vs The Commissioner on 5 March, 2010 - Free Judgements of Supreme Court &amp; High Court | Legal India<\/title>\n<meta name=\"robots\" content=\"index, follow, max-snippet:-1, max-image-preview:large, max-video-preview:-1\" \/>\n<link rel=\"canonical\" href=\"https:\/\/www.legalindia.com\/judgments\/monson-job-manoj-vs-the-commissioner-on-5-march-2010\" \/>\n<meta property=\"og:locale\" content=\"en_US\" \/>\n<meta property=\"og:type\" content=\"article\" \/>\n<meta property=\"og:title\" content=\"Monson Job @ Manoj vs The Commissioner on 5 March, 2010 - Free Judgements of Supreme Court &amp; 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