Full Judgment Text
REPORTABLE
IN THE SUPREME COURT OF INDIA
CIVIL APPELLATE JURISDICTION
CIVIL APPEAL NO. 10465 OF 2011
(Arising out of SLP (C) No. 34229 of 2010
Bharati Balkrishna Dhongade .... Appellant (s)
Versus
State of Maharashtra & Ors .... Respondent(s)
J U D G M E N T
P. Sathasivam, J.
1) Leave granted.
2) The principal question which arose for consideration in
this appeal is whether “Namdeo Shimpi” caste is a sub-caste
within the meaning of Entry 153 (Shimpi) in the Government
Notification notifying list of Other Backward Classes (OBC)
relating to the State of Maharashtra, even though it is not
specifically mentioned as such?
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3) This appeal is filed against the final judgment and order
dated 21.10.2010 passed by the High Court of Judicature at
Bombay in Writ Petition No. 5772 of 2009 whereby the
Division Bench of the High Court dismissed the writ petition
filed by the appellant herein.
4) Brief Facts:
(a) On 18.01.1997, the Additional District Deputy Collector,
Mumbai Suburban District, Mumbai issued a Caste Certificate
to the appellant herein certifying that she belongs to Hindu
Shimpi Caste which is recognized as Other Backward Class
(Sr. No. 153) under Government Resolution No. CBC 1467/M
dated 13.10.1967, Education and Social Welfare Department
and as amended from time to time. In the year 2007, the
appellant herein along with Mrs Safia Parveen Abdul Munaf-
Respondent No. 6 contested the elections of Municipal
Corporation of Greater Mumbai from Ward No. 62 reserved for
women candidate belonging to the other backward classes and
the appellant won the election. As per the policy of the State
Election Commission, the Caste Certificate of the appellant
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herein was sent to the Scrutiny Committee to scrutinize the
caste claimed and issue of validity certificate.
(b) After the elections, Respondent No. 6 forwarded a
complaint to the Caste Scrutiny Committee (in short ‘the
Committee’) alleging that the appellant’s claim of belonging to
caste “Hindu Shimpi” was not proper. The appellant herein
also submitted the documents in support of her claim. By
order dated 20.04.2007, the Committee certified that the Caste
Certificate issued to the appellant was valid and accepted that
she belongs to ‘Shimpi’ of Other Backward Class (OBC).
(c) Challenging the said order, Respondent No. 6 filed Writ
Petition No. 5112 of 2007 before the High Court of Bombay.
By order dated 15.09.2008, the High Court set aside the order
dated 20.04.2007 passed by the Committee and remanded the
matter back to it for de novo consideration and decision in
accordance with law. By order dated 19.06.2009, the
Committee declared the claim of the appellant herein as
invalid and cancelled the Caste Certificate issued to her.
(d) Aggrieved by the order dated 19.06.2009, the appellant
herein filed Writ Petition No. 5772 of 2009 before the High
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Court of Bombay. By order dated 21.10.2010, the Division
Bench of the High Court dismissed the writ petition.
(e) Aggrieved by the said decision, the appellant herein has
preferred this appeal by way of special leave petition before
this Court.
5) Heard Mr. L. Nageswara Rao, learned senior counsel for
the appellant and Ms. Asha Gopalan Nair, learned counsel for
respondent Nos. 1 to 3, Mr. S. Sukumaran, learned counsel
for respondent No.5 and Mr. A.V. Sawant, learned senior
counsel for the contesting respondent No.6.
6) Mr. Rao, learned senior counsel for the appellant by
drawing our attention to the Government Resolution dated
03.06.1996 issued by Social Welfare, Cultural Affairs and
Sports Department, Government of Maharashtra, submitted
that in view of illustration given in Clause 25, the Committee
and the High Court ought to have accepted the claim of the
appellant and declared that she belongs to ‘Namdeo Shimpi’,
which is one of the castes included in Other Backward Classes
(OBCs). In the above-mentioned Government Resolution,
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Clauses 25 and 31 have been pressed into service. They are
as follows:
“ Clause 25
If in the list of O.B.C.’s if there is a clear reference of the
main caste, the competent authorities should issue caste
certificate to the sub-caste or the similar caste of the main
caste i.e., in the list of list of O.B.Cs’ caste Kunbi is included.
If in the documents of any person the word used are Tillori
Kunbi or Khaire Kunbi then since the caste Kunbi is in the
list of the O.B.C’s and since the said caste is a main caste,
such person be granted certificate of the caste Kunbi. If only
the word/names Tillori, Khaire are mentioned, the caste
certificate cannot be issued to such person as on the bases
of the name Tillori, Khaie the main caste does not get
clarified.
Clause 31
In the list of O.B.C’s, eligible for the benefits in the state of
Maharashtra, main castes are included and the sub-castes
of such caste are also held eligible for issuance of the caste
certificate. Persons belonging to such sub-castes be issued
caste certificate in the name of the main caste.”
It is not in dispute that the reference mentioned in Clause 25,
namely, caste ‘Kunbi’ is only an illustration. It is, no doubt,
true that in terms of Clause 31 in the list of OBCs eligible for
the benefits in the State of Maharashtra, if main castes are
included, in that event, the sub-castes are also eligible for
issuance of the caste certificate. According to the learned
senior counsel for the appellant, based on Clause 31, persons
belonging to such sub-castes can be issued caste certificate in
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the name of the main caste. Per contra, Mr. A.V. Sawant,
learned senior counsel for the contesting respondent No.6
submitted that first of all, the reference made by the appellant
is not a full extract and admittedly it is only a portion thereof
and in the absence of full details about the Government
Resolution, it is not safe to rely upon and, more particularly,
in the light of Constitutional judgments of this Court clarifying
the position regarding issuance of caste certificate.
7) On a complaint being made by Respondent No. 6,
regarding the validity of the caste certificate produced by the
appellant, the matter was referred to the Regional Caste
Certificate Verification Committee (RCCVC). The Verification
Committee, consisting of the President, Member and Research
Officer, on receipt of the complaint issued notice to both the
parties, afforded opportunity to them and after relying on
various materials including the Government Notifications,
Regulations etc., by order dated 19.06.2009, declared the
claim of the appellant invalid and cancelled the Caste
Certificate issued by the Additional District Deputy Collector,
Mumbai Suburban District dated 18.01.1997.
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8) The said order of the Verification Committee was
challenged before the Division Bench of the High Court and by
order dated 21.10.2010, it concluded that the appellant
belongs to ‘Namdeo Shimpi’ caste which does not fall under
Entry 153 of the relevant Government Resolution dated
01.03.2006 issued by the Government of Maharashtra. It is
relevant to point out that though some other sub-castes of
caste ‘Shimpi’ in (OBC) have been mentioned in Entry 153,
admittedly, ‘Namdeo Shimpi’ has not been included under the
original caste ‘Shimpi’. The relevant protion of the Entry 153
is as under:
________________________________________________________________________
S.No. Original caste and Serial no. Synonym caste/sub-caste
In the category of Other and Serial Number of its
Backward Class original caste included
afresh
6. Shimpi --- 153 Jain Shimpi, Shravak Shimpi,
Shetaval, Shetawal, Saitaval,
Saitawal --- 153
In view of the fact that there is no reference to ‘Namdeo
Shimpi’ in Entry 153, the appellant who belongs to the same
caste cannot claim the benefit meant for ‘Other Back-ward
Classes’ of ‘Shimpi’ caste.
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9) The issue relating to caste certificate, scrutiny by the
Committee, inclusion or deletion etc. have been considered by
the Constitution Bench of this Court in State of
Maharashtra vs. Milind and Others , (2001) 1 SCC 4.
Relying upon two earlier Constitution Bench decisions in (i) B.
Basavalingappa vs. D. Munichinappa , AIR 1965 SC 1269 =
(1965) 1 SCR 316 and (ii) Bhaiya Lal vs. Harikishan Singh ,
AIR 1965 SC 1557 = (1965) 2 SCR 877, the Constitution
Bench in Milind’s case (supra) has clearly held that an
enquiry as to whether any other caste or sub-caste can be
included in the caste or tribe specifically mentioned in the
Presidential Order was wholly impermissible.
10) The factual position in the Milind’s case (supra) is as
follows:-
The respondent, on the basis of the School Leaving
Certificate and other records of himself and his close relative
obtained a caste certificate from the Executive Magistrate,
Nagpur on 20.08.1981 as belonging to “Halba”, Scheduled
Tribe. On the basis of that certificate, he was selected in the
Government Medical College for MBBS degree course for the
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year 1985-86 in the reserved category meant for Scheduled
Tribes. The certificate was sent for verification to the Scrutiny
Committee constituted under the Directorate of Social Welfare.
After necessary inquiry, the Scrutiny Committee recorded a
finding to the contrary and rejected the certificate. The
Appellate Authority, after detailed examination of evidence
dismissed the respondent’s appeal and held that the
respondent belonged to “Koshti” caste and not to
“Halba/Halbi”, Scheduled Tribe. However, the High Court
allowed the respondent’s writ petition and quashed the
impugned orders inter alia holding that it was permissible to
inquire whether any subdivision of a tribe was a part and
parcel of the tribe mentioned therein and that “Halba-Koshti”
was a subdivision of main tribe “Halba/Halbi” as per Entry 19
in the Constitution (Scheduled Tribes) Order, 1950 (for short
“Scheduled Tribes Order”) applicable to Maharashtra. Before
the Constitution Bench, learned senior counsel for the
appellant-State of Maharashtra contended that:
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(a) it was not permissible to hold an inquiry whether a
particular group was a part of the Scheduled Tribe as specified
in the Scheduled Tribes Order;
(b) the decision in Bhaiya Ram Munda vs. Anirudh Patar
& Ors. (1970) 2 SCC 825, did not lay down the correct
principle of law as to the scope of inquiry and the power to
amend the Scheduled Castes/Scheduled Tribes Order; [this
contention involved the specific question as to whether “Halba-
Koshti” caste was a sub-tribe within the meaning of Entry 19
(Halba/Halbi) of the Scheduled Tribes Order relating to the
State of Maharashtra, even though not specifically mentioned
as such].
(c) the High Court misinterpreted the report of the Joint
Committee of Parliament placed before it when representations
for inclusion of “Halba-Koshti” in the Scheduled Tribes Order
were rejected;
(d) the High Court also committed an error in invoking and
applying the principle of stare decisis to the facts of the
present case;
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(e) & (f) the High Court erred in setting aside the orders of the
Scrutiny Committee and the Appellate Authority which were
made on proper and full consideration of evidence and
authorities;
(g) the High Court gave undue importance to the
resolutions/circulars issued by the State Government which
were contrary to law;
(h) the High Court erred in treating the issue involved in the
present case to have been closed in Abhay caste.
On the other hand learned senior counsel for the respondent
contended that the old records relating to the period when
there was no controversy, clearly supported the case of the
respondent and the School Leaving Certificate issued to the
respondent was valid. He also submitted that it was open to
show that a particular caste was part of the Scheduled Tribes
coming within the meaning and scope of tribal community
even though it was not described as such in the Presidential
Order.
11) Allowing the appeal but moulding the relief, the
Constitution Bench held thus:
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“11. By virtue of powers vested under Articles 341 and 342
of the Constitution of India, the President is empowered to
issue public notification for the first time specifying the
castes, races or tribes or part of or groups within castes,
races, or tribes which shall, for the purposes of the
Constitution be deemed to be Scheduled Castes or
Scheduled Tribes in relation to a State or Union Territory, as
the case may be. The language and terms of Articles 341 and
342 are identical. What is said in relation to Article 341
mutatis mutandis applies to Article 342. The laudable object
of the said articles is to provide additional protection to the
members of the Scheduled Castes and Scheduled Tribes
having regard to social and educational backwardness from
which they have been suffering since a considerable length
of time. The words “castes” or “tribes” in the expression
“Scheduled Castes” and “Scheduled Tribes” are not used in
the ordinary sense of the terms but are used in the sense of
the definitions contained in Articles 366(24) and 366(25). In
this view, a caste is a Scheduled Caste or a tribe is a
Scheduled Tribe only if they are included in the President's
Orders issued under Articles 341 and 342 for the purpose of
the Constitution. Exercising the powers vested in him, the
President has issued the Constitution (Scheduled Castes)
Order, 1950 and the Constitution (Scheduled Tribes) Order,
1950. Subsequently, some orders were issued under the said
articles in relation to Union Territories and other States and
there have been certain amendments in relation to Orders
issued, by amendment Acts passed by Parliament.
15. Thus it is clear that States have no power to amend
Presidential Orders. Consequently, a party in power or the
Government of the day in a State is relieved from the
pressure or burden of tinkering with the Presidential Orders
either to gain popularity or secure votes. Number of persons
in order to gain advantage in securing admissions in
educational institutions and employment in State services
have been claiming as belonging to either Scheduled Castes
or Scheduled Tribes depriving genuine and needy persons
belonging to Scheduled Castes and Scheduled Tribes covered
by the Presidential Orders, defeating and frustrating to a
large extent the very object of protective discrimination given
to such people based on their educational and social
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backwardness. Courts cannot and should not expand
jurisdiction to deal with the question as to whether a
particular caste, sub-caste; a group or part of tribe or sub-
tribe is included in any one of the entries mentioned in the
Presidential Orders issued under Articles 341 and 342
particularly so when in clause (2) of the said article, it is
expressly stated that the said Orders cannot be amended or
varied except by law made by Parliament. The power to
include or exclude, amend or alter Presidential Order is
expressly and exclusively conferred on and vested with
Parliament and that too by making a law in that regard. The
President had the benefit of consulting the States through
Governors of States which had the means and machinery to
find out and recommend as to whether a particular caste or
tribe was to be included in the Presidential Order. If the said
Orders are to be amended, it is Parliament that is in a better
position to know having the means and machinery unlike
courts as to why a particular caste or tribe is to be included
or excluded by law to be made by Parliament. Allowing the
State Governments or courts or other authorities or
Tribunals to hold inquiry as to whether a particular caste or
tribe should be considered as one included in the schedule
of the Presidential Order, when it is not so specifically
included, may lead to problems. In order to gain advantage
of reservations for the purpose of Article 15(4) or 16(4)
several persons have been coming forward claiming to be
covered by Presidential Orders issued under Articles 341 and
342. This apart, when no other authority other than
Parliament, that too by law alone can amend the Presidential
Orders, neither the State Governments nor the courts nor
Tribunals nor any authority can assume jurisdiction to hold
inquiry and take evidence to declare that a caste or a tribe or
part of or a group within a caste or tribe is included in
Presidential Orders in one entry or the other although they
are not expressly and specifically included. A court cannot
alter or amend the said Presidential Orders for the very good
reason that it has no power to do so within the meaning,
content and scope of Articles 341 and 342. It is not possible
to hold that either any inquiry is permissible or any evidence
can be let in, in relation to a particular caste or tribe to say
whether it is included within Presidential Orders when it is
not so expressly included.
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36. Finally, the Constitution Bench has concluded that:
1 . It is not at all permissible to hold any inquiry or let in any
evidence to decide or declare that any tribe or tribal
community or part of or group within any tribe or tribal
community is included in the general name even though it is
not specifically mentioned in the entry concerned in the
Constitution (Scheduled Tribes) Order, 1950.
2 . The Scheduled Tribes Order must be read as it is. It is not
even permissible to say that a tribe, sub-tribe, part of or
group of any tribe or tribal community is synonymous to the
one mentioned in the Scheduled Tribes Order if they are not
so specifically mentioned in it.
3 . A notification issued under clause (1) of Article 342,
specifying Scheduled Tribes, can be amended only by law to
be made by Parliament. In other words, any tribe or tribal
community or part of or group within any tribe can be
included or excluded from the list of Scheduled Tribes issued
under clause (1) of Article 342 only by Parliament by law and
by no other authority.
4 . It is not open to State Governments or courts or tribunals
or any other authority to modify, amend or alter the list of
Scheduled Tribes specified in the notification issued under
clause (1) of Article 342.
5 . Decisions of the Division Benches of this Court in Bhaiya
Ram Munda v. Anirudh Patar and Dina v. Narain Singh did
not lay down law correctly in stating that the inquiry was
permissible and the evidence was admissible within the
limitations indicated for the purpose of showing what an
entry in the Presidential Order was intended to be. As stated
in Position (1) above no inquiry at all is permissible and no
evidence can be let in, in the matter.”
12) In Kumari Madhuri Patil & Another vs. Additional
Commissioner, Tribal Development & Ors. (1994) 6 SCC
241, this Court has given elaborate directions for deciding the
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claim of persons who belong to the Scheduled Castes,
Scheduled Tribes or Other Backward Classes. These
directions have been reiterated in a recent decision by a larger
Bench of three Judges of this Court in Dayaram vs. Sudhir
Batham & Ors. 2011 (11) Scale 448.
13) Mr. Rao, learned senior counsel, by relying on the
position prevailing in the State of Karnataka, namely, that
caste ‘Namdeo Shimpi’ has been included in OBC submitted
that the same analogy may be applied to the State of
Maharashtra. We have already noted the elaborate discussion
and the ultimate order of the Committee as well as the
Division Bench of the High Court. We are satisfied that before
arriving at such conclusion they considered the entire material
on record including the distinction between the list of OBCs in
the State of Karnataka as against the list of OBCs in State of
Maharashtra and recorded a finding that the appellant who
belongs to ‘Namdeo Shimpi’ caste does not belong to OBC of
‘Shimpi’ caste in Maharashtra. In view of the same, we reject
the contention of the learned senior counsel for the appellant.
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14) Ms. Asha Gopalan Nair, learned counsel appearing for
the State took us through various averments in the counter
affidavit filed by the State of Maharashta. The counter
affidavit filed by the Secretary to the Government of
Maharashtra in this Court shows that pursuant to the
recommendations made by the Maharashtra State Backward
Class Commission, the list of castes falling under OBC
‘Shimpi’ has been amended from time to time. However, even
the Government Resolution dated 01.03.2006 does not include
‘Namdeo Shimpi’ under the heading ‘Shimpi’ as OBC.
15) It is brought to our notice that the Maharashtra State
Backward Class Commission has been constituted in terms of
the judgment of this Court in Indra Sawhney vs. Union of
India , 1992 Supp (3) SCC 212, which is headed by a retired
Judge of the Bombay High Court and assisted by experts in
the field. Further, the said Commission undertakes extensive
studies and make recommendations from time to time or
suggest additions and alterations in the list of OBCs and it is
after such elaborate exercise the final list has emerged as per
the Government Resolution dated 01.03.2006. The details
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furnished in the counter affidavit filed by the Secretary to the
Government of Maharashtra show that the above referred
Government Resolution is being updated from 1961 on several
occasions. We have already explained that the extract of the
Government Resolution dated 03.06.1996 relied on by Mr.
Rao, learned senior counsel for the appellant dealing with
caste ‘Kunbi’ (OBC), has no relevance to the facts of the
present case. We are also satisfied that the said Committee
has considered the distinction between the list of OBCs in the
State of Karnataka and in State of Maharashtra and has taken
note of the fact that though the Karnataka State has thought
it fit to include ‘Namdeo Shimpi’ under the category of ‘Shimpi’
(OBC), the Government of Maharashtra has not done so. This
has also been rightly highlighted in the impugned order by the
Division Bench of the High Court.
16) When it is not so expressly or specifically included in the
Government Resolution/order along with the main caste, in
such case, even if it is synonymous to the one mentioned in
the order, it is not permissible to avail such benefit of
reservation. It is well known that a caste may fall under the
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category of OBCs in one State, but the said caste may not be
classified as OBC in other State. At any rate, we are of the
view that no specific evidence was led by the appellant to
discharge the burden of proof on her under Section 8 of the
Maharashtra Scheduled Castes, Scheduled Tribes, De-notified
Tribes (Vimukta Jatis), Nomadic Tribes, Other Backward
Classes and Special Backward Category (Regulation of
Issuance and Verification of) Caste Certificate Act, 2001.
Inasmuch as the burden of proof under Section 8 of the said
Act being on the person who claims to belong to that caste,
tribe, or class, in view of the factual conclusion by the
Committee based on relevant acceptable material and the
decision of the Division Bench, we are unable to accept the
claim of the appellant. On the other hand, we are satisfied
that the Committee and the Division Bench of the High Court
have considered the entire material in the light of the decisions
of this Court and came to a finding of fact that the appellant
does not belong to caste ‘Shimpi’ (OBC) and belongs to
‘Namdeo Shimpi’ caste which is not OBC in the State of
Maharashtra.
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17) Under these circumstances, we do not find any valid
ground for interference with the impugned order of the High
Court. Consequently, the appeal fails and the same is
dismissed with no order as to costs.
...…………….
…………………………J.
(P. SATHASIVAM)
.…....…………………………………J.
(J. CHELAMESWAR)
NEW DELHI;
DECEMBER 05, 2011.
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