Allahabad High Court
Sachchidanand Gupta (Sachchey)[ ... vs Union Of India Thru. Secy.,Ministry Of ... on 31 January, 2014
Bench: Devi Prasad Singh, Ashok Pal Singh
HIGH COURT OF JUDICATURE AT ALLAHABAD, LUCKNOW BENCH IN THE HIGH COURT OF JUDICATURE AT ALLAHABAD, LUCKNOW BENCH, LUCKNOW RESERVED A.F.R. Case :- MISC. BENCH No. - 12802 of 2011 Petitioner :- Sachchidanand Gupta (Sachchey) [ P.I.L.] Civil Respondent :- Union of India Through Secy., Ministry of Rural Development & Others Counsel for Petitioner :- Nadeem Murtaza,Anurag Vikram,Chandra Dhari Singh,Manish Kumar,Mrs. Kamini Jaiswal,Nadeem Murtaza,Prashant Singh Atal Counsel for Respondent :- C.S.C.,A.S.G.,Bireshwar Nath Hon'ble Devi Prasad Singh,J.
Hon'ble Ashok Pal Singh,J.
(Delivered by Hon'ble Devi Prasad Singh, J)
1. Instant writ petition under Article 226 of the Constitution of India relates to misappropriation of fund, allocated to different districts of the State of U.P. by the Central Government under the 'Mahatma Gandhi National Rural Employment Guarantee Act, 2005' (In short, MGNREGA).
2. Demons of corruption are hunting the public exchequer. Alexander Pope in his Moral essays (Epistle to Bathurst) had very nicely naratted the seriousness of corruption and its effect. To quote relevant portion :
"At length corruption, like a general flood, (So long by watchful ministers withstood) Shall deluge all; and avarice creeping on, Spread low like a low-born mist, and blot the sun;
Statesman and patriot ply alike the stocks;
Peeress and butler share alike the box, And judges job, and bishops bite the town, And mighty dukes pack cards for half a crown, See Britain sunk in lucre's sordid charms."
Whether India will sunk in lucre's sordid charms ?
3. The material on record prima facie reveals startling facts with regard to misappropriation of fund allocated under MGNREGA right from lowest echelon of the elected representative, i.e. Pradhan, Gram Sabha members to the higher bureaucracy in a well netted collusive manner. The allegation, broadly, relates to seven districts of the State of U.P., i.e. Balrampur, Gonda, Mahoba, Sonbhadra, Sant Kabir Nagar, Mirzapur and Kushinagar in the year 2007 to 2010. The total fund allocated under MGNREGA for the seven districts in the year 2007-2008, 2008-2009 and 2009-2010 by the Central Government and expenditure incurred thereon as informed by Mr. Z. Zilani, learned Addl. Advocate General is as under :
foRrh; o"kZ & 2007&08 /kujkf'k :0 yk[k esa Dz0 la0 tuin Lohd`r Je ctV vkjfEHkd vo'ks"k Hkkjr ljdkj ls izkIr fuf/k jkT; ljdkj ls izkIr fuf/k fofo/k izkfIr ;ksx dqy miyC/k /kujkf'k dqy O;; 1 2 3 4 5 6 7 8 9 1 egksck 1691-68 648-67 3331-18 425-00 46-94 4451-79 3087-98 2 Dq'khuxj 13385-25 1150-61 7012-16 1045-00 27-08 9234-85 9069-53 3 xkasaMk 0-00 6-94 6062-53 665-00 0-00 6734-47 6591-89 4 lksuHknz 0-00 1287-75 6539-64 1215-00 16-04 9058-43 8284-05 5 Ckyjkeiqj 0-00 8-43 3599-69 390-00 360-60 4358-72 3819-24 6 lar dchj uxj 0-00 0-00 2551-93 280-00 134-29 2966-22 2247-06 7 fetkZiqj 9115-44 1617-81 4648-79 516-53 3-54 6786-67 6231-04 foRrh; o"kZ & 2008&09 /kujkf'k :0 yk[k esa dz la0 tuin Lohd`r Je ctV vkjfEHkd vo'ks"k Hkkjr ljdkj ls izkIr fuf/k jkT; ljdkj ls izkIr fuf/k fofo/k izkfIr ;ksx dqy miyC/k /kujkf'k dqy O;; 1 2 3 4 5 6 7 8 9 1 egksck 5812-00 1363-00 5058-02 386-43 17-18 6825-43 5196-85 2 Dq'khuxj 16436-00 165-32 11659-48 1509-65 37-18 13371-63 12077-44 3 xkasaMk 7625-86 537-39 6169-00 424-40 10-45 7141-24 5928-99 4 lksuHknz 15289-00 774-38 16180-09 1453-29 3-32 18411-08 15464-12 5 Ckyjkeiqj 4255-00 539-49 5993-04 696-12 90-34 7318-98 6547-57 6 lar dchj uxj 7236-00 719-16 5907-98 622-60 23-43 7273-17 6598-66 7 fetkZiqj 13917-00 555-63 9520-61 1057-85 21-20 11155-29 9023-52 foRrh; o"kZ & 2009&10 /kujkf'k :0 yk[k esa Dz0 la0 tuin Lohd`r Je ctV vkjfEHkd vo'ks"k Hkkjr ljdkj ls izkIr fuf/k jkT; ljdkj ls izkIr fuf/k fofo/k izkfIr ;ksx dqy miyC/k /kujkf'k dqy O;; 1 2 3 4 5 6 7 8 9 1 egksck 10053-50 1628-58 6150-97 569-94 29-48 8378-97 5798-31 2 Dq'khuxj 15185-31 1294-19 10795-91 1322-79 84-39 13497-28 11228-28 3 xkasaMk 12517-68 1212-25 9696-13 1016-71 0-00 11925-09 10565-27 4 lksuHknz 33940-00 2917-20 23379-49 2141-69 150-69 28589-07 25044-65 5 Ckyjkeiqj 17151-83 771-42 11228-34 1159-14 96-60 13255-50 10756-88 6 lar dchj uxj 9962-92 674-51 6845-88 804-07 38-59 8363-05 7460-63 7 fetkZiqj 18166-78 2131-77 12820-32 1424-48 18-00 16394-57 13874-64
4. The petitioner, a media personnel when came to know regarding mal-practices under the Scheme (supra), has preferred the writ petition seeking a mandamus for investigation by the Central Bureau of Investigation. During course of hearing, no serious objection has been raised with effective rebuttal with regard to pleading on record to the maintainability of writ petition as well as the material brought on record for CBI enquiry by the petitioner except that the State Government is seized with matter and proceeding ahead with enquiry from its own agency.
5. For effective supervision and control, the State Government has appointed State Quality Monitor (In short, SQM) to ensure proper utilization of the fund provided by the Central government under MGNREGA.
6. It appears that on receipt of report with regard to blatant abuse of power and misappropriation of fund by the authorities in collusion with elected representatives holding various posts, Mr. Jairam Ramesh, Minister of Rural Development, Government of India, wrote a letter dated 24.10.2011(Annexure No.4) to the then Chief Minister inviting her attention to the report submitted by SQM pointing out misappropriation of fund under the Scheme in seven districts. The Minister after drawing the attention to the report of SQM made a request for concurrence of urgent CBI probe into the abuse of fund during the implementation of MGNREGA in Balrampur, Gonda, Mahoba, Sonbhadra, Sant Kabir Nagar, Mirzapur and Kushinagar districts. It appears that the government has given no heed to the letter dated 24.10.2011. Hence, he wrote another letter dated 14.11.2011 (Annexure No.5) showing his deep concern to the misappropriation of fund under the Scheme(supra) in the aforesaid seven districts. He stated that no person has been punished right from 2007-08, though on the face of record, fund seems to have been misappropriated right from village Pradhan to the officers of the district concerned. The observations made by the Minister, Rural Development, Government of India in his letter dated 14.11.2011 (Annexure No.5) with regard to seven districts are summarized as under :
DISTRICT BALRAMPUR It has been pointed out by the Minister that on one count, the total misappropriation of fund comes to Rs.18118602/-. Relevant portion is reproduced as under :
"leLr tkWp fjiksVksZ dk mYys[k u dj egt vki dk /;ku Lo;a jkT; ljdkj ds vf/kdkjh cfyjke }kjk bl ekeys esa dh x;h ,d tkWp fjiksVZ dh vksj fnykmWxk tks fd jkT; ljdkj dks vkt ls nks o"kZ ls vf/kd le; iwoZ tqykbZ] 2009 esa izkIr gks x;h Fkh A mDr tkWp ds i`"B 23 esa ftu 11 enksa esa [kjhn dh tkWp dh x;h] muesa yxHkx 181] 18602 :0 dh ;kstuk dh /kujkf'k dh {kfr ik;h x;h A blls vf/kd xEHkhj foRrh; vfu;ferrk D;k gksxh fd iz'kklfud en esa /kujkf'k u gksus ds ckn Hkh dk;Z en ls Hkqxrku fd;s x;s vkSj dqy fu/kkZfjr iz'kklfud en ds nqxqus ls vf/kd dh lkexzh dz; dh x;h A egkRe xkW/kh ujsxk vf/kfu;e esa O;oLFkk gS fd foRrh; vfu;ferrkvksa ds ekeys esa ,Q vkbZ vkj ntZ dh tk;sxh A DISTRICT GONDA With regard to district Gonda, the Minister pointed out that the then Chief Development Officer Shri Raj Bahadur has not provided the documents to the Development Commissioner who was investigating the matter. Relevant portion of the observation made by the Minister in his letter is reproduced as under :
"cfYd tkWp dh izfdz;k esa nksf"k;ksa dks nks"k ls voeqDr djus dh vksj gh iz;kl tkjh gS A ;fn jkT; ljdkj rhu o"kksZa esa ;g Hkh ugha fu;r dj ldh fd dkSu&dkSu lh lkexzh dz; gqbZ vkSj fdruh vfu;ferrk blesa cjrh x;h rks bldk mRrj D;k gks ldrk gS \ D;k jkT; us bldh tkWp dHkh dh fd cktkj Hkko ls vR;ar vf/kd nke ij dz; lkexzh ls fdldks Qk;nk igqapk vkSj fdruh voS/kkfud lEifRr nks"kh dkfeZdksa@vf/kdkfj;ksa }kjk cVksjh x;h gS \ D;k jkT; us bl fcanq dh tkWp dh fd tks lkexzh vR;f/kd nke ij LokFkZ fgr esa leLr foRrh; fu;eksa dks nj&fdukj dj vR;ar mWps nkeksa ij [kjhnh x;h oks dHkh okLro esa izkIr Hkh gqbZ vkSj iz;ksx esa vk ldh vFkok dkfeZdksa@vf/kdkfj;ksa ,oa lIyk;j ds xBtksM@feyhHkxr ls egt dkxtksa ij gh vf/kdka'k vkiwfrZ lhfer jgh A DISTRICT MAHOBA While considering the abuse of fund in district Mahoba, the Minister, Rural Development pointed out that large-scale payment has been done to non-existing firms. To quote relevant portion :
,d ,sls ekeys esa ftlesa xaHkhj vfu;ferrk gqbZ vkSj Lo;a jkT; ljdkj dh tkudkjh esa ;s Fkk fd lkexzh vkiwfrZdrkZvksa ls nks"kh vf/kdkfj;ksa dh bl gn rd feyhHkxr Fkh fd tcjnLrh iapk;rksa ds [kkrs ls bldk Hkqxrku ,slh QeZ dks gqvk ftldk gksuk lafnX/k Ikk;k x;k ,oa dz; lkexzh dh [kjhn esa cktkj nj ls vR;f/kd dk Hkqxrku djk;k x;k A ml ekeys esa Hkh ljdkj fdlh ds fo:) dksbZ dk;Zokgh ugha dj ldh A xaHkhj vfu;ferrkvksa ds ekeys esa dk;Zokgh dh vkSipkfjdrk djus dh bfrJh dk ;s ekeyk jkT; ds }kjk Hkz"Vkpkjh vf/kdkfj;ksa dks ;kstu ds /ku dh ywV esa fyIr jgus dk lUns'k nsus dk mnkgj.k gS A D;k jkT; dh eq[;ea=h egksn;k dks bldk Kku gS fd bl lkexzh ds dz; esa igys nj 16900 :0 izfr lsV dh j[kdj] tuinh; vf/kdkfj;ksa }kjk cxSj foRrh; fu;eksa ds ,d laLFkk dks vkns'k fn;s x;s vkSj iqu% dkxtksa ij fujLrhdj.k dh vkSipkfjdrk dj cxSj vius irs ij fo|eku QeZ veu baVjizkbtst dks 19012 :0 izfr lsV dk Hkqxrku tcjnLrh iapk;rksa ds [kkrs ls dj fn;s tkus ds nks"k vf/kdkfj;ksa ds ftl fuyacu dh ?kks"k.kk muds }kjk dh x;h Fkh] oks lHkh nks"keqDr fd;s tk pqds gS \ DISTRICT KUSHINAGAR While referring the report of SQM, the Minister invited attention to the amount misappropriated by village Pradhan in connivance with district authorities. To quote relevant portion :
viuh tkWp fjiksVZ esa tuin esa gqbZ vfu;ferrkvksa ds n~f"Vxr ,lD;w,e }kjk ;g Hkh fy[kk x;k gS fd ;g lc bl fu"d"kZ ds fudkyus ds fy, Ik;kZir gS fd [k.M fodkl vf/kdkjh Jh pUnz'k[kj] Jh fot; dqekj vxzoky mQZ feVBw vxzoky] Jh jkts'k vxzoky] Jh mes'k pUnz jk;] lfpo iapk;r] Jh jEeu izlkn] iz/kku lygUrk nsoh o muds iq= larks"k jk; o vU; yksx Hkh feyhHkxr o vkijkf/kd d`R;ksa esa lafyIrrk ds nks"kh gSa A vr% jktdh; lsodksa ds fo:) iz'kklfud o vkijkf/kd nksuksa rjg dh dk;Zokgh gksuh pkfg, vkSj vU;ksa ds fo:) Hkh vkijkf/kd dk;ZokbZ gksuh pkfg, A vkijkf/kd dkuwu ds varxZr dk;Zokgh lhohlhvkbZMh vFkok iqfyl vkfFkZd vijk/k 'kk[kk ds mu vf/kdkfj;ksa dks lkSaiuk pkfg, tks fu"i{k vkSj fuHkhZd gksa] ftUgsa ftyk iapk;r ds 'kh"kZ inkf/kdkjh vkSj mDr fot; dqekj vxzoky mQZ feV~Bw vxzoky vkfn tSls yksx vius izHkko esa u ys ldsa A Jh pUnz'ks[kj] [k.M fodkl vf/kdkjh] Jh mes'k pUnz jk;] xke iapk;r vf/kdkjh ds fo:) xaHkhj naM gsrq foHkkxh; dk;Zokgh dk Hkh vkSfpR; curk gS A DISTRICT MIRZAPUR In district Mirzapur also, the payment has been made on the basis of fictitious roll and as pointed out, the members of Block Development Committee were working as contractor making fictitious signatures on the muster roll for misappropriation of fund under MGNREGA. To quote relevant portion :
mijksDr tkWp fjiksVZ esa QthZ dksVs'ku gksus] vfHkys[kksa ds QthZ l`tu djus] /kujkf'k dks xyr rjhds ls vkgfjr djus laca/kh vusd ekeys izkekf.kd :i ls fl) ik, x;s A bl CykWd ds dk;ksZa esa ,sls vkiwfrZdrkZvksa dks vf/kd Hkqxrku fd;s x;s gSa ftuds fo:) xaHkhj vkijkf/kd eqdnesa ntZ gSa vkSj ftuds }kjk voS/k [kuu] QthZ QeZ cukdj Hkqxrku fy;k x;k gS A ,lD;w,e dh fjiksVZ esa vR;Ur foLrkj ls bl CykWd esa vfu;ferrkvksa dks lk{;ksa ds lkFk izekf.kr djrs gq, ;s laLrqfr dh xbZ gS fd nksf"k;ksa dks fuyafcar dj izFke lwpuk fjiksVZ vafdr djkdj iqfyl dh fo'ks"k 'kk[kk ls tkWp djk;h tk, A u dsoy egkRek xka/kh ujsxk ;kstuk cfYd LFkyh; tkWp esa ikbZ x;h Hk;kogrk dh fLFkfr Lo;a blls O;Dr gksrh gS fd tkWp vf/kdkjh us fy[kk gS lcls fparktud fLFkfr ;g gS fd fodkl [k.M gkfy;k esa ,slk okrkoj.k gS fd izeq[k ds izHkko okys xzkesak esa ftys esa vf/kdkfj;ksa esa f'kdk;rksa dh fu"i{krk vkSj lR;fu"Bk ls tkWp dj rF; ijd fu"d"kZ nsus dk lkgl ugha izrhr gksrk gS A fuf'pr :i ls bl tkWp dks lEiUu djus okys jkT; ds vf/kdkjh dk d`R; iz'kaluh; gS ijUrq ;g vR;Ur nq[kn gS fd bruh foLr`r vkSj rF; ijd fjiksVZ izkIr gksus ds ckn Hkh jkT; ljdkj fpfUgr nks"kh vf/kdkfj;ksa ds fo:) ,QvkbZvkj rks D;k mUgsa foxr Ms<+ o"kZ esa fuyafcr djus dk Hkh dk;Z ugha dj ldh A DISTRICT SANT KABIR NAGAR The situation of district Sant Kabir Nagar seems to be more worst where the fund under MGNREGA Scheme seems to have been misappropriated by fabrication of records by collusive act of elected representatives. The Minister referring to the report of SQM observed as under :
bl tuin ds fo"k; esa jkT; ljdkj dks izkIr fjiksVZ esa LFkkuh; jktuSfrd ncko vkSj ncaxbZ dk tks mnkgj.k gS( mls ns[kdj ,slk ugha yxrk fd jkT; ljdkj ;kstuk esa gks jgs /ku ds nq:i;ksx dks jksdus ds fy, ;gkW dksbZ izHkkoh dne mBk,xh A ;g ;kstuk ds /ku ds nq:i;ksx ds fy, ,d LFkkuh; fo/kk;d ds HkkbZ }kjk QthZ vkosnu ds }kjk Hkqxrku O;kid :i ls fd;k tk jgk gS vkSj ifj;kstukvksa ds fdz;kUo;u esa QthZ Hkqxrku] LFkkuh; fo/kk;d ds ifjokj ds ml HkV~Bs ds uke fd;k tk jgk gS tks fu;eksa esa iathd~r ugha gS vkSj LFkkuh; iz'kklfud vf/kdkjh rks viuh txg] Lo;a jkT; ljdkj ,slh ywV ij [kkeks'k cSBh jgs] rks bls dSls cnkZ'r fd;k tk;s A D;k jkT; ds ,lD;w,e }kjk nh x;h fjiksVZ ds vk/kkj ij vc rd dksbZ ,QvkbZvkj ntZ djk;h x;h \ D;k /kujkf'k dh Hk;adj ywV esa fyIr vf/kdkfj;ksa @[k.M fodkl vf/kdkfj;ksa@dkfeZdkssa dks fuyafcr dj naM nsus dh dksbZ dk;Zokgh gqbZ \ D;k /kujkf'k ds gq, nqji;ksax dks olwyus dh dksbZ dk;Zokgh vHkh rd dh x;h \ DISTRICT SONBHADRA Position of district Sonbhadra seems to be the same as of other districts. Referring to the report of SQM, the Minister pointed out that the houses of Nagar Avas Yojana have been allotted to the friends and relatives of village Pradhan and in spite of having sufficient material, no First Information Report has been lodged. Those who had submitted complaint against the power abuser were threatened with dire consequences. Referring the report of SQM, the Minister made observation as under :
17- tuin ds fodkl [kaM ?kksjkoky dh tkap esa ikbZ xbZ vfu;ferrkvksa ds fo"k; esa ,l D;w ,e us fy[kk gS % mijksDr ekeys esa of.kZr dnkpkj] xaHkhj vkijkf/kd dk;Z dks O;Dr djrs gSa A vr% [k.M fodkl vf/kdkjh jkts'k ;kno] lgk;d ys[kkdkj Jh jkds'k dqekj JhokLro] dk;Z izHkkjh Jh jkts'k nqcs] voj vfHk;ark jkds'k ik.Ms; o lgtkns [kka ls lacaf/kr jkf'k dh olwyh ds vykok mUgsa fuyafcr dj xaHkhj n.M gsrq foHkkxh; dk;Zokgh dk leqfpr vkSfpR; curk gS A lkFk gh] izFke lwpuk fjiksVZ Hkh iqfyl esa ntZ djkdj vfHk;kstu dk vkSfpR; curk gS A bl fcUn ij l{ke Lrj ij fopkj dj mfpr fu.kZ; ysus dh vko';drk gS] vU;Fkk vf/kfu;e@;kstuk dk mfpr dk;kZUo;u ugha gksxk vkSj vkijkf/kd d`R;ksa esa o`f) gksrh jgsxh A 18- Jh jkts'k ;kno ,oa vU; nksf"k;ksa ds fo:) vHkh rd dksbZ iqfyl fjiksVZ ntZ ugha dh xbZ] bldk D;k larks"ktud mRrj turk dks fn;k tk ldrk gS \ ;kstuk esa ywV dh f'kdk;r djus okyksa dks /kedk dj pqi djkus ,oa tkap dks izHkkfor djus ds fo"k; esa Hkh lksuHkna esa dh x;h fofHkUu tkap dh fjiksVksZa esa ,d ,l D;w ,e us lk{;ksa ls ;g Hkh Li"V fd;k gS fd vf/kfu;e ds yksdrkaf=d izko/kkuksa] dk;Z;kstuk ,oa dk;ksZa ds dk;kZUo;u dh O;oLFkk dh bl {ks= esa iw.kZ :i ls mis{kk gks jgh gS vkSj ;fn dksbZ xq.koRrk&ghu dk;Z vkSj /ku ds nq:i;kszx dh f'kdk;r djrk gS rks mlds lkFk nqO;Zogkj fd;k tkrk gS A ge yksxksa }kjk fujk{k.k ds le; ,slh ,d ?kVuk lkeus vkbZ ftlesa [k.M fodkl vf/kdkjh] ?kksjkoy Jh jkts'k ;kno dk f'kdk;rdrkZ ds izfr vR;f/kd nqO;Zogkj ifjyf{kr gqvk] tks fdlh Hkh izdkj mfpr ugha dgk tk ldrk vkSj ftyk iz'kklu ds fy, rks ;g iw.kZr;k tufgr ds izfrdwy] fuUnuh; ,oa nks"kiw.kZ gS A Relying upon the report of SQM, the Minister further pointed out that the works were done by assigning contracts to contractors which is not permissible under MGNREGA Scheme. To quote relevant portion :
23- D;k tkap vf/kdkjh }kjk mfYyf[kr ekeys esa dksbZ lkFkZd dk;Zokgh gqbZ \ ;s flQZ ,d ekeyk ugha] cfYd iwjs tuin ds fo"k; esa fofHkUu tkap fjiksVksZa tks ,lD;w,e }kjk izLrqr dh x;h gSa] mlesa leLr lk{; ds lkFk Hkz"Vkpkj vkSj vfu;ferrk dks vusd LFkyksa ij mtkxj djrh gS A ijarq jkT; ljdkj us egt dqN dkj.k crkvks uksfVl vkSj dqN foHkkxh; dk;Zokgh vkjaHk djus dk vkoj.k cuk dj nksf"k;ksa vkSj /ku dh ywV djus okyksa dks iJ; fn;k tkuk tkjh j[kk A ;fn nksf"k;ksa ds fo:) dk;Zokgh djus dh bPNk'fDr esa deh ugha jgh gS rks D;k jkT; ljdkj ;s crk,xh fd ,l D;w ,e~ }kjk Li"V :i ls ;g mYys[k djuk fd ,d vk'p;Ztud fLFkfr ;g O;Dr gksrh gS fd tuin ds dbZ ofj"B vf/kdkjh ;g Lohdkj djrs gSa fd eq[; fodkl vf/kdkjh Jh ds Mh jke ds le; dkQh xM+cfM;ka o /ku dk nq:i;ksx gqvk] ysfdu vc xMcfM;ka ugha gksaxh A Jh ds Mh jke] rRdkyhu eq[; fodkl vf/kdkjh ds dk;Zdky esa ;g dnkpkj vkSj ;kstuk ds /ku ds nq:i;ksx ds mnkgj.k gSa] ds ckn Hkh D;k dksbZ dk;Zokgh jkT; ljdkj us ds Mh jke ds fo:) vkjaHk dh \ jkT; us D;k tuin lksuHknz esa djksMksa :i;s ds ?kiys vkSj ywV djus okys Hkz"V vf/kdkfj;ksa }kjk ;kstu ds /ku ls ywV ls vk; ls vf/kd lEifRr vftZr djus dh tkap djus dh fn'kk esa ,d dne Hkh c<+k;k \ jkT; ljdkj dh Hkz"Vkpkfj;ksa ds fo:) dk;Zokgh u djus ds n`f"Vxr vkSj vR;f/kd vfu;ferrkvksa dh HkyhHkkafr tkap gks] nks"kh nf.Mr gksa vkSj mudh voS/k lEifRr tCr gks lds] blds fy, lhchvkbZ tkap ds vykok vkSj dksbZ fodYi ugha gS A
7. While concluding the letter (supra), the Minister made a request that the concurrence should be given for CBI enquiry since the Economic Offences Wing (EOW) of the State is not in a position to discharge its obligation fairly, justly and expeditiously. The Minister concluded the letter with following observation :
bu tuinksa ¼cyjkeiqj] xksaMk egksck] lksuHknz] dq'khuxj] lar dchjuxj ,oa fetkZij½ esa lhchvkbZ tkap dh lgefr vius vki esa jkT; }kjk vfu;ferrk esa yxs gq, O;fDr;ksa ij Hk; ds ,d vadq'k dk dk;Z djsxh fd jkT; ljdkj fdlh dks Hkh Hkz"Vkpkj djus ij ugha cpk,xh A tgka rd bZvksMCY;w tkap dk iz'u gS] dqN tkx:d O;fDr;ksa }kjk esjh tkudkjh esa ;g yk;k x;k gS fd izns'k dh bZvksMCY;w }kjk iwoZ esa xzkeh.k fodkl ;kstuk ,lthvkjokbZ ,oa ,lth,lokbZ esa gq, dz; dh tkap yacs le; ls dh tk jgh gS ij vHkh rd dksbZ lkFkZd dk;Zokgh ugha gks ldh gS] fQj Hkh ;fn jkT; ljdkj bZvksMCY;w dk ;kstuk esa gqbZ vfu;ferrkvksa dh tkap ds fy, izHkkoh :i ls mi;ksx djuk pkgrh gS rks vU; dbZ ,sls vfu;ferrk ds ekeys gSa] ftuesa bls ukfer djus ij fopkj djuk pkfg, A mnkgj.k ds fy,] dkuiqj nsgkr ds eq[; fodkl vf/kdkjh tloar flag }kjk dh xbZ csapksa dh [kjhn ,oa vU; vfu;ferrk,a] m|ku foHkx }kjk egkRek xka/kh ujsxk ;kstuk ds varxZr cht [kjhn esa vfu;ferrk] bl o"kZ tuin fl)kFkZuxj esa iapk;rksa ds ek/;e ls iz'kklfud en esa lkexzh [kjhn djus dh vfu;ferrk vkfn ekeys] ftu ij ;k rks dksbZ dk;Zokgh ughas gqbZ gS ;k fQj mUgsa cxSj leqfpr naM vFkok nks"kh ds fo:) dk;Zokgh ds lekIr dj fn;k x;k gS A
8. It appears that in spite of sufficient material made available by the SQM (supra), the State Government has not taken any action in the matter. A perusal of the report of SQM, filed as Annexure No.3 to the writ petition reveals that the observation made by the Cabinet Minister, Rural Development, Government of India (supra), prima facie seems to be correct. Payment under MGNREGA Scheme has been made to hundreds and thousands of persons whose names were found to be entered into muster roll twice or thrice. Further, in contravention of rules, works have been executed through the contract. An amount of Rs.14,31,973.51 has been paid to one Chandra Bhushan on account of supply of grid, stone and sand though he does not possess licence for mining.
9. Similarly, payment has been made to different persons under the Scheme on fake documents. Purchase of sand, stone, grids from unauthorized persons, execution of work by contract, payment to workers on false and fabricated muster rolls, supply of material without inviting any tender, purchase of some material on quotation supplied by fake firms, submission of quotation after supply of materials san giving details of the work for which the quotation has been sent, prima facie, seems to be established from the report of SQM (supra) and has been relied upon by the Minister, Rural Development, Central Government.
10. While filing supplementary affidavit, the petitioner relying upon the report of 'State Quality Monitor', has drawn the attention to the total amount misappropriated with regard to two development blocks of district Sonbhadra, namely Gorwal and Robertsganj, to the tune of Rs. 3,17,93,298/-. Similarly, in district Sant Kabir Nagar, Rs.14,39,963/- has been misappropriated only in one block, i.e. in Santha. In case misappropriation of funds under the Scheme (supra) is assessed for whole of the Districts, it shall swing to many crores.
11. In pursuance to the direction issued by this court, status of pending investigation with Economic Offences Wing has been brought on record. The Economic Offences Wing by letter dated 17.12.2013 had communicated the status of pending investigation which on the face of record seems to be far from satisfactory. For convenience, letter dated 17.12.2013 as submitted to the court during the course of hearing by Mr. I.P. Singh, learned Chief Standing Counsel in its totality is reproduced as under :
xksiuh;
ekuuh; mPpre U;k;ky;@ek0 mPp U;k;ky; izdj.k
eq[;ky; vkfFkZd vijk/k vuqla/kku laxBu] vi0vuq0 foHkkx] m0iz0
la0%bZvksMCyw0@tkWp&52@2011 fnukWd %y[kum %fnlEcj 17] 2013
lsok esa
Jh ,e0ih0 flag
ofj"B mik;qDr
xzkE; fodkl foHkkx]
m0iz0 y[kum A
fo"k; %& tufgr ;kfpdk la[;k & 12802@,ech@2011 lfPpnkuUn xqIrk cuke Hkkjr la?k o vU; ds lEcU/k esa A d`i;k mi;ZqDr fo"k;d vius i= la[;k&1531@fof/k vuq0@2013 fnukad 16&12&2013 dk lanHkZ xzg.k djus dk d"V djsa] ftlds }kjk eujsxk ;kstukUrxZr dh x;h vfu;ferrkvksa dh tkWp dh v|ru fLFkfr foLr`r vk[;k ds lkFk miyC/k djk;s tkus ds lEcU/k esa gS A tuin xks.Mk] cyjkeiqj] egksck] dq'khuxj] fetkZiqj] lUrdchjuxj rFkk lksuHknz dh tks tkWpsa bl laxBu }kjk dh tk jgh gS] muds lEcU/k esa okWfNr vk[;k eq[;ky; ij miyC/k vfHkys[ksak ds vuqlkj tuinokj fuEuor gS %& 1& tuin egksck& ¼tkap&51@11½ egkRek xkW/kh ujsxk ;kstuk ds vUrxZr o"kZ 2007&08 esa tuin dh leLr 247 xzke iapk;rksa gsrq dSuokl uqoosy odZ'ksM ds dz; esa cjrh xbZ foRrh; vfu;ferrk ds lEcU/k esa tuin egksck ls dz; dh x;h lkexzh ls lEcf/kr izdj.k dh tkWp ds e/; 753 lkf{k;ksa ls iwNrkN dj muds dFku vafdr fd, x, gSA rFkk vfHkys[kh; lk{;ksa dk ftlesa izdj.k ls lEcfU/kr iwoZ esa lEikfnr dh x;h foHkkxh; tkWp vk[;k] dz; lEcU/kh fu;e vkfn dk ladyu dj fy;k x;k gS A tkWp dk;Z vafre pj.k esa gS A 2& tuin cyjkeiqj& ¼tkap&53@11½ egkRek xkW/kh ujsxk ;kstuk ds vUrxZr o"kZ 2007&08 o 2008&09 esa lkexzh] e'khu] midj.k ,oa LVs'kujh vkfn ds dz; esa cjrh xbZ foRrh; vfu;ferrk ds laca/k esa xokgku Jh osn izdk'k JhokLro] lgk;d ys[kkdkj] Kh g`n;kuUn 'kekZ] ofj"B fyfid] Jh t; 'akdj flag] Jh vksadkj ukFk vkfn ls iwNrkN dh x;h rFkk izdj.k ls lEcfU/kr vfHkys[k izkIr fd, x, A xzkeksa ,oa xkze iz/kkuksa dk fooj.k lfgr] rglhy fnol ds jftLVj] rglhy fnol esa vk;h f'kdk;rsa rFkk muds fujkdj.k ij d`r dk;Zokgh dk fooj.k] ;kstuk ds fdz;kUo;u ds laca/k esa tkjh vkns'k o funsa'k ,oa muds vuqikyu ds laca/k esa fooj.k] LVsV ysfcy ij ekuhVfjax desaVh ds lnL;ksa ds uke] in orZeku fu;qfDr nwjHkkl ua0 lfgr rFkk muds nkf;Ro ds laca/k esa fooj.k] Vs.Mj izfdzdk dh izekf.kr izfrfyfi] [kjhnnkjh ds laca/k esa fn;s x;s /ku ds psdksa dh Nk;kizfr;ka] ,dkmaV vkfQl ds dS'k cqd dh Nk;kizfr;kW rFkk xzke iz/kku Lrj ls dS'k cqd dh Nk;kizfr;kW izkIr fd;k tkuk 'ks"k gS A tkWp ds nkSjku izdk'k esa vk;s xokgksa dk c;ku fy;k tkuk 'ks"k gS A tkWp dk;Z izpfyr gS A 3& tuin xks.Mk & ¼tkap&54@11½ egkRek xkW/kh ujsxk ;kstuk ds vUrxZr o"kZ 2007&08 o 2008&09 esa lkexzh] e'khu] midj.k ,oa Lvs'kujh vkfn ds dz; esa cjrh xbZ foRrh; vfu;ferrk ds laca/k esa xokgku Jh vo/ks'k dqekj flag] ys[kkdkj] Jh jkt cgknqj] rRdkyhu eq[; fodkl vf/kdkjh] Jh nqxsZ'k dqekj] Jh x;k izrki xkSre vkfn yksxksa ds c;ku ysdj iwNrkN dh x;h gS rFkk vfHkys[k ,d= fd, x;s gSa A vHkh izdj.k ls lEcfU/kr yksxksa ls iwNrkN rFkk vfHkys[kksa dk ,d= fd;k tkuk 'ks"k gS A 4& tuin fetkZiqj & ¼tkap&56@11 izdj.k lekIr½ egkRek xkW/kh ujsxk ;kstuk ds vUrxZr fodkl [k.M gfy;k o"kZ 2006&07 ls 2009&10 ds e/; dfri; xkze iapk;rksa ,oa [k.M fodkl vf/kdkfj;ksa@dk;Zdze vf/kdkfj;ksa }kjk Hkkjh /kujkf'k vfxze ds :i esa vkgj.k fd;k tkuk] dwVjfpr vfHkys[k] dksVs'ku o ckmpj vkfn rS;kj fd;k tkuk] QthZ ukeksa ls /ku dk vkgj.k ,oa Hkqxrku djk;k tkuk] [kfutksa dk voS/k [kuu dj nwj ls ifjogu fn[kkdj [kfut lkexzh ds dz; ifjogu ij vf/kd /kujkf'k dk O;; fd;k tkuk fcuk fu/kZkfjr dz; izfdz;k viuk;s lkexzh dk dz; vkfn dh xEHkhj foRrh; vfu;ferrk;sas dkfjr djus ls lEcf/kr izdj.k esa voxr djkuk gS fd bUgha vkjksiksa ds lEcU/k esa eq[; fodkl vf/kdkjh@izHkkjh ftyk eftLVsV] fetkZij ds vkns'k ls [k.M fodkl vf/kdkjh] gfy;k }kjk Fkkuk gfy;k ij dk;Zokj 54 vfHk;ksx ¼eq0v0la0&147@2012 ls 200@2012 rd ½ iathd`r djk;s x;s A QyLo:i izdj.k esa izpfyr tkap&56@2011 dks tkjh j[kus dk vkSfpR; u Ikk;s tkus ij tkap dk;Z lekIr fd;k x;k rFkk mDr lHkh 74 vfHk;ksxksa dh foospuk 'kklu }kjk bl laxBu dks vfHkfn"V fd, tkus ij bl laxBu }kjk foospuk,a lEikfnr dh tk jgh gS A izdj.k esa d`r dk;Zokgh dk fooj.k fuEuor~ gS %& 'kklukns'k la[;k & 519@25&8&2012&17¼64½@2012 fnukad 25&5&2012 }kjk tuin fetkZiqj ds Fkkuk gfy;k ij ntZ 54 ,Q0vkbZ0vkj0 dh foospuk bl laxBu dks lanfHkZr dh x;h] ftudk fooj.k ifjf'k"V&1 esa layXud gS A vkfFkZd vijk/k vuqla/kku laxBu }kjk mDr 54 ifj;kstukvksa esa gq;h foRrh; vfu;ferrkvksa gsrq mDr vof/k esa rSukr fuEufyf[kr vf/kdkfj;ksa@deZpkfj;ksa dks nks"kh@mRrjnk;h ik;k x;k %& 1& Jh e/kqdj f}osnh] rRdkyhu ftykf/kdkjh 2& Jh jekdkUr 'kqDyk] rRdkyhu ftykf/kdkjh 3& Jh fot; izrki flag] rRdkyhu eq[; fodklvf/kdkjh 4& Jh tloar flag] rRdkyhu eq[; fodklvf/kdkjh@ftykf/kdkjh 5& Jh Hkxsyw jke] rRdkyhu eq[; fodkl vf/kdkjh@ftykf/kdkjh 6& Jh jktsUnz dqekj] rRdkyhu eq[; fodkl vf/kdkjh 7& Jh lquhy dqekj frokjh] rRdkyh [k.M fodkl vf/kdkjh 8& Jh rstHkku flag] rRdkyhu [k.M fodkl vf/kdkjh 9& Jh HkksysukFk dukSft;k] rRdkyhu [k.M fodkl vf/kdkjh 10& Jh vk'kkjke flag] rRdkyhu [k.M fodkl vf/kdkjh 11& Jh uUnykky lksudj] rRdkyhu [k.M fodkl vf/kdkjh 12& Jh 'ks"kukFk pkSgku] rRdkyhu [k.M fodkl vf/kdkjh 13& Jh gfjuke flag] rRdkyhu ch0vk0 ih0vkj0Mh0 14& Jh jk/kk eksgu flag] rRdkyhu voj vfHk;ark ¼vkbZbZ,l½ 15& Jh jkecpu jke] rRdkyhu lgk;d fodkl vf/kdkjh 16& Jh lqnkek izlkn xkoMs] rRdkyhu lgk;d fodkl vf/kdkjh@iapk;r 17& Jh v'kksd dqekj flag] rRdkyhu voj vfHk;ark 18& Jh duZy v'kskd flag] rRdkyhu lgk;d fodkl vf/kdkjh 19& Jh lqjsUnz dqekj frokjh] rRdkyhu xzkE; fodkl vf/kdkjh 20& Jh izeksn dqekj flag] rRdkyhu voj vfHk;ark A mDr ds vfrfjDr bZvksMCyw dh foospuk vk[;k esa fuEufyf[kr futh O;fDr;ksa dks Hkh nks"kh ik;k x;k gS & 1& Jh jktho xqwIrk 2& Jh lat; flag 3& Jh KkusUnz flag] rRdkyhu Cykd izeq[k 4& Jh ohjsUnz cgknqj ekS;Z 5& Jh vfuy flag bZvksMCyw dh foospuk vk[;k ds laca/k esa 'kklu }kjk xzkE; fodkl foHkkx dk foHkkxh; vfHker miyC/k djk;s tkus dk vuqjks/k fd;k x;k gS] ftlds ifjis{; esa xzkE; fodkl foHkkx ds }kjk foHkkxh; er miyC/k djrs gq, fuEufyf[kr vf/kdkfj;ksa ds ckjs esa fuEuor~ foHkkxh; er dk mYys[k fd;k gS %& 1& Jh e/kqdj f}osnh] rRdkyhu ftykf/kdkjh A 2& Jh jekdkUr 'kqDy] rRdkyhu ftykf/kdkjh A 3& Jh fot; izrki flag] rRdkyhu eq[; fodkl vf/kdkjh 4& Jh tloar flag] rRdkyhu eq[; fodkl vf/kdkjh 5& Jh Hkxsyw jke] rRdkyhu eq[; fodkl vf/kdkjh 6& Jh jktsUnz dqekj] rRdkyhu eq[; fodkl vf/kdkjh eujsxk ekxZnf'kZd ds iSjk&12-6-7 ds vuqlkj foRrh; vfu;ferrkvksa ls lacaf/kr f'kdk;rksa ds laca/k esa lkekU;r% fdlh Lohdk;Z ,0Vh0vkj0 ds fy, fuEufyf[kr dk;Zokgh iwjh dh x;h gS A ¼1 ½nks"kh vf/kdkjh ds f[kykQ ,QvkbZ vkj ntZ djuk ;fn izFke n`"V;k vkijkf/kd vk'k; Li"V gksrk gS rFkk ¼2½ foHkkxh; tkap dks vkSipkfjd :i ls 'kq: djuk A ftyk dk;Zdze leUo;d ij eujsxk Ldhe ds fdz;kUo;u ds iqufoZyksd] ekuhVj vkSj i;Zos{k.k dk nkf;Ro gS] ds vk/kkj ij gh ftyk dk;Zdze leUo;d ds fo:) vkjksi yxk;s x;s gS A ,l0vks0ih0 ds vuqlkj mDr vf/kdkfj;ksa ij vkijkf/kd vk'k; ifjyf{kr ugha gks jgk gS A 1& Jh lquhy dqekj frokjh] rRdkyhu [k.M fodkl vf/kdkjh 2& Jh rstHkku flag] rRdkyhu [k.M fodkl vf/kdkjh 3& Jh HkksykukFk dukSfj;k] rRdkyhu [k.M fodkl vf/kdkjh 4& Jh vk'kkjke flag] rRdkyhu [k.M fodkl vf/kdkjh 5& Jh uUnyky lksudj] rRdkyhu [k.M fodkl vf/kdkjh 6& Jh 'ks"kukFk pkSgku] rRdkyhu [k.M fodkl vf/kdkjh 7& Jh gfjuke flag] rRdkyhu ch0vks0 ih0vkj0Mh0 8& Jh jk/kk eksgu flag- rRdkyhu voj vfHk;ark 9& Jh jkecpu jke] rRdkyhu lgk;d fodkl vf/kdkjh 10& Jh lqnkek izlkj xkoMs] rRdkyhu [k.M fodkl vf/kdkjh] iapk;r 11& Jh v'kksd dqekj flag] rRdkyhu voj vfHk;ark 12& Jh duZy v'kskd flag] rRdkyhu lgk;d fodkl vf/kdkjh 13& Jh lqjsUnz dqekj frokjh] rRdkyhu xzkE; fodkl vf/kdkjh 14& Jh izeksn dqekj flaag] rRdkyhu voj vfHk;ark A eujsxk ekxZn'kZd ds iSjk&12-6-7 ds vuqlkj foRrh; vfu;ferrkvksa ls lacaf/kr f'kdk;rksa ds laca/k esa lkekU;r% fdlh Lohdk;Z ,0Vh0vkj0 ds fy, fuEufyf[kr dk;Zokgh iwjh dh x;h gS A ¼1½ nks"kh vf/kdkjh ds f[kykQ vQvkbZvkj ntZ djuk ;fn izFke n`"V;k vkijkf/kd vk'k; Li"V gksrk gS rFkk ¼2½ foHkkxh; tkap dks vkSipkfjd :i ls 'kq: djuk A mijksDr vf/[email protected] ds mij dwVjfpr rjhds ls /ku nq:i;ksx djus ds izdj.k esa buds fo:) eujsxk vf/kfu;e esa of.krZ ,l0 vk0s ih0 ds0 vuqlkj izFke n`'V;k vkijkf/kd vk'k; ifjyf{kr gksrk gS A xzkE; fodkl }kjk fn;s x;s vfHker@eUrC; dks 'kklu }kjk Lohdkj fd, tkus dk fu.kZ; fy;k x;k rFkk iz'uxr ekeys esa vUrxzZLr 1& Jh e/kqdj f}osnh] rRdkyhu ftykf/kdkjh 2& Jh jekdkUr 'kqDy] rRdkyhu ftykf/kdkjh 3& Jh fot; izrki flag] rRdkyhu eq[; fodkl vf/kdkjh 4& Jh tloar flag] rRdkyhu eq[; fodkl vf/kdkjh 5& Jh Hkxsyw jke] rRdkyhu eq[; fodkl vf/kdkjh 6& Jh jktsUnz dqekj] rRdkyhu eq[; fodkl vf/kdkjh ls izkIr izR;kosnuksa dks vko';d dk;Zokgh gsrq bl laxBu dk izsf"kr fd;k x;k A mDr fu.kZ; ds lkis{k la'kksf/kr foospuk vk[;k 'kklu dks miyC/k djk;s tkus dh vis{kk 'kklukns'k la[;k & 882@25&8&2013&17¼64½@2012 fnukad 09&10&2013 }kjk dh x;h gS A xkzE; fodkl fodkl ds vfHker esa 06 vf/kdkfj;ksa ij vkijkf/kd vk'k; ifjyf{kr ugha gks jgk gS rFkk 14 vf/kdkfj;ksa@dkfeZdks ds fo:) vkijkf/kd vk'k; ifjyf{kr gksus ds earO; dks Lohdkj djrs gq, nks"kh vf/kdkjh@deZpkfj;ksa ds fo:) vfHk;kstu vkfn Lohd`fr fd;s tkus ds laca/k esa dk;Zokgh fd;s tkus ds funsZ'k 'kklukns'k la[;k fjV 88¼1½@25&8&2013&17¼64½@2012 fnukad 28&11&2013 }kjk fn;s x;s gS rFkk foospuk vk[;k@ laLrqfr esa ftu 05 futh O;fDr;ksa dks vkijkf/kd d`R; esa nks"kh Ikk;k x;k gS muds fo:) l{ke U;k;ky; esa vkjksi i= nkf[ky fd;s tkus dh dk;Zokgh lEikfnr djkbZ tk jgh gS A 'kklukns'k la[;k 1215@25&8&2012&17 fnukad 28&11&2013 ¼64½@2012 fnukad 09&11&2012 }kjk tuin fetkZij ds Fkkuk lh[akM ij ntZ 20 ,Q0vkbZ0vkj0 ¼eq0v0la0&200@12 ls 219@2012 rd½ dk fooj.k ifjf'k"B&2 layXu gS] ftudh foospuk bl laxBu dks lanfHkZr dh x;h A foospuk lEizfr izpfyr gS A 5& tuin lksuHknz& tkap&30@12 egkRek xkW/kh ujsxkk ;kstuk ds fdz;kUo;u esa psd Mseks ds fuekZ.k ,oa vU; fuekZ.k dk;ksZa esa iz;qDr lkexzh ds dz; esa fu/kkZfjr izfdz;k dk vuqikyu vkfn esa cjrh xbZ foRrh; 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12. A perusal of the aforesaid letter on the face of record reveals that so far as districts Mahoba, Gonda , Sonbhadra, Sant Kabir Nagar and Kushi Nagar are concerned, the investigation done by the Economic Offence Wing is at initial stage. In district Balrampur, still statement of all the witnesses has not been recorded. In district Mirzapur, some of the officers have been exonerated though from the report of SQM, their involvement may also not be ruled out.
13. On the face of record, the pending investigation with Economic Offences Wing does not seem to be satisfactory. In spite of First Information Report, substantial number of persons involved in the offence have not been arrested. Charge-sheet in all cases also does not seem to have been filed delaying the trial of culprits.
14. STATUTORY PROVISIONS The National Rural Employment Guarantee Act, 2005 (In short, NREGA) was amended in the year 2009 with a changed title, namely The Mahatma Gandhi National Rural Employment Guarantee Act (in short, MGNREGA) w.e.f. 2.10.2009. Thus, MGNREGA is a tribute to the Father of Nation who sacrificed his life for the welfare of the country. The object of the Act, as borne out from the statute is to enhance the livelihood , food, security and quality of life in rural area by providing at least 100 days of guaranteed 'wage employment' in a financial year to every household whose adult members volunteer to do unskilled manual work. This work guarantee can also serve other objectives : generating productive assets, protecting the environment, empowering rural women, reducing rural urban migration and fostering social equity, among others.
15. The Act envisages a collaborative partnership between the Central Government, the State Governments, the Panchayats and the local community. Broadly, the main implementation activities are at the village and Block levels, while coordination activities are mainly at the Block and District levels. Planning, supervision and monitoring take place at all levels, i.e. village, Block, District and State. At each level, the concerned authorities are accountable to the community.
16. Section 3 of the Act guarantees rural employment in notified rural area to every household whose adult members volunteer to do unskilled manual work.
Under Section 4 of the Act, the State Government shall make a scheme and duly notify the same. The summary of the Scheme shall be published in at least two local newspapers, one of which shall be in a vernacular language.
Sections 10 and 12 envisage for creation of Central Employment Guarantee Council and State Employment Guarantee Council.
The principal authorities for planning and implementation of Schemes under the Act have been provided in Section 13. The District Programme Coordinator shall be designated by the Government in pursuance to power conferred by Section 14 of the Act.
Heavy burden lies on the shoulder of Gram Panchayats in pursuance to duty assigned to them under Sections 16 and 17 of the Act. Under Section 17, every Gram Sabha has to monitor the execution of works within the Gram Panchayat and shall also conduct regular social audits of all the projects under the Scheme. But ultimate responsibility is of the State Government in view of the statutory mandate contained in Section 18 of the Act.
17. Section 19 of the Act further provides that the State Government shall by rule create appropriate grievance redressal mechanism at Block level and the district level for dealing with complaint by any person in respect of implementation of the Scheme. For convenience, Section 19 of the Act is reproduced as under :
"19. Grievance redressal mechanism.- The State Government shall, by rules, determine appropriate grievance redressal Grievance mechanisms at the Block level and the district level for dealing with any complaint by any person in respect of implementation of the Scheme and lay down the procedure for disposal of such complaints."
Section 27 of the Act empowers the State Government to issue appropriate direction for effective implementation of the provisions of the Act. For convenience, Section 27 of the Act is reproduced as under :
"27. (1) The Central Government may give such directions as it may consider necessary to the State Government for the effective implementation of the provisions of this Act.
(2) Without prejudice to the provisions of sub-section (1), the Central Government may, on receipt of any complaint regarding the issue or improper utilisation of funds granted under this Act in respect of any Scheme if prima facie satisfied that there is a case, cause an investigation into the complaint made by any agency designated by it and if necessary, order stoppage of release of funds to the Scheme and institute appropriate remedial measures for its proper implementation within a reasonable period of time."
Section 28 gives the Act overriding effect on all other statutory provisions. The Central Government has got power to frame rules under Section 28 of the Act.
Under Section 32, the State Government can also frame rules.
18. In pursuance to the statutory provisions(supra), the Government of India has issued an instruction/ direction vide its letter dated 10.3.2011 as contained in Annexure No.2 to the writ petition to monitor and review the implementation of MGNREGA in the States. For the purpose of monitoring and effective implementation of the Scheme, circular contains the following direction :
"4. For the purpose of above, the following process is hereby laid down by the Ministry :
a. Complaints received from independent sources will be enquired into by the Government of India;
b. In case there is prima facie case for further investigation, a proper statement of charges will be framed and sent to the respective State Government for enquiry and response within a period of two weeks.
c.Once the report is received, a screening committee constituted at the Ministry level will examine the report and in case, it is not found satisfactory, get the charges investigated by the CBI (where criminal intent is prima facie established) or by a team of officers of the Ministry, where system failure or non criminal lapse seems to be the case.
d. In the case of investigation of the case by the CBI, the State Governments should transfer the accused officers out of the area of operation of the Mahatma Gandhi NREGA. In case the State Government does not comply, the release of funds will be stopped.
e. In the case of investigation by a team of central officers, on receipt of the report, the release of funds will be stopped and the State Government will be given a reasonable cure period within which they should remedy the system.
f. Central funding will be restored once the Central Government is satisfied that the State Government has taken appropriate remedial measures."
DISCUSSION AND FINDING
19. The purpose of MGNREGA, as evident from the Act, itself is very pious intending to secure quality of life and to provide basic amenities to the citizens of rural area. But unfortunate part which prima facie is borne out from the record particularly the report of SQM is that corruption seems to be the main hurdle in effective implementation of the Scheme. Now, it is not only the government employees, authorities or officers but lowest rug of democratic polity, i.e. Panchayat, Gram Pradhan, Members of Gram Panchayat, Members of Block Development Committee which prima facie, also seems to involve in corrupt practices and having hand in glove with the government authorities misappropriating public fund under the Scheme. This is a sorry state of affairs.
20. The circular dated 10.3.2011, issued by the Government of India (supra) seems to have binding effect. Since the report submitted by SQM revealed a prima facie case for investigation and prosecution, there was no way out on the part of the State Government not to take follow up action in pursuance to Clause (C) of Para 4 of the letter dated 10.3.2011. The request made by the Government of India for investigation by C.B.I.(supra) should have been concurred by the State Govt. A little delay in such matters gives opportunity to the accused or guilty persons to destroy the evidence.
21. It is vehemently argued by the petitioner's counsel that not only in seven districts but in each and every district, majority of fund under MGNREGA was misappropriated by the officers, Gram Pradhan and Panchayat members which seems to be prima facie correct. While writing letter, Government of India itself pointed out serious irregularities committed at Kanpur, Siddharthnagar and other places. Why the State Government had not directed the State Quality Monitor to look into utilisation of MGNREGA fund in other districts is a question which crops up in the mind of every person having common prudence.
22. There is another aspect of the matter. Why the request made by the Government of India was not complied with by the State Government and why the Government of India had not stopped the fund under MGNREGA is also not borne out from the record and the arguments advanced by the parties' counsel. Since sufficient evidence was found with regard to abuse and misappropriation of fund under MGNREGA Scheme, it was incumbent on the part of the Government of India to stop the fund immediately and streamline the scheme in appropriate manner with sufficient safeguards instead of permitting the proliferation of public fund.
23. The Economic Offences Wing has also not proceeded with investigation promptly as is evident from its own letter dated 17.12.2013 (supra). The connivance and collusion between the investigating agencies and the persons involved in misappropriation of fund may not be ruled out.
24. In JT 2007(4)SC 144 Vishwanath Chaturvedi versus Union of India and others, their Lordships of Hon'ble Supreme Court held that in case the allegations casting cloud on integrity of high functionaries are levelled, it shall be desirable to refer such dispute for an independent probe.
25. In JT 2006(9) SC 663 Shashikant versus CBI and others, their Lordships of Hon'ble Supreme Court held that a preliminary enquiry may be conducted by the C.B.I in accordance with Chapter IX of CBI Manual which may, later on, be converted into regular case and the First Information Report be lodged in case there is sufficient material.
26. In (2011)6 SCC 508 Noida Entrepreneurs Association versus NOIDA and others, their Lordships of Supreme Court further held that power vested by the State to a public authority should be viewed as a trust coupled with duty to be exercised in larger public and social interest while strictly adhering to the statutory provisions. In case there is breach of public trust and public duty, the court may order for preliminary enquiry by the C.B.I with regard to abuse of power or fund.
27. In State of West Bengal versus Committee for Protection of Democratic Rights (2010)3 SCC 571, their Lordships of Supreme Court held that the High Court may direct the CBI enquiry in appropriate cases where there is blatant abuse of power involving persons belonging to Ruling Party.
28. In Centre for Environment and Food Security versus Union of India and others (2011)5 SCC 668, while interpreting the provisions contained in Section 27(2) of MNREGA Act, their Lordships of Supreme Court held that in pursuance to statutory power conferred by the Act itself as well as the guidelines issued by the Central Government, the Government of India has got power to direct CBI enquiry where fund under MGNREGA Scheme has been abused and misappropriated by the persons involved therein. Relevant portion from the judgment of Centre for Environment and Food Security (supra) is reproduced as under :
"2. The authorities appointed under the Act are responsible to ensure proper utilization of the funds released by Union of India for implementation of the schemes framed under the provisions of the Act. The Central Government issued guidelines, viz., NREGA Operational Guidelines in 2008 for proper implementation. Petitioner has prayed before us that proper investigation is required to be conducted into cases of non-compliance with the provisions of the Act, schemes framed there under and the guidelines issued by the Central Government to prevent diversion of funds specifically allocated for implementation of the schemes framed under the Act.
15. Wide powers of investigation are vested in the CBI under the provisions of the Delhi Special Police Establishment Act, 1946. Another provision which has a significant bearing on the matters before us is Section 27(2) of the Act. This provision specifically states that the Central Government may, on receipt of any complaint regarding the issue of improper utilization of funds granted under this Act in respect of any scheme, if prima facie satisfied that there is a case, cause an investigation into the complaint by any agency designated by it. Thus, the Central Government has full power to refer the matter to CBI for investigation in regard to the complaints received by it. The State Government has enquired into complaints received and even engaged NIRD to conduct social-audits and submit its report to the State Government. The Central Government is even vested with the power, in such cases, to stop release of the funds to the scheme and institute appropriate remedial measures for its proper implementation. Thus, it will be useful for the concerned authorities in the Central Government to ponder over the entire matter and propose such directions or measures which the State Government should take in order to prevent recurrence of the events that have taken place in number of States and particularly in the State of Orissa."
29. In view of above, it is not understandable as to why the Government of India itself has not referred for investigation to the C.B.I and kept the matter pending under the garb of concurrence from the State Government.
30. From the plain reading of the letter dated 4.11.2011 (Annexure No.5) and the report of SQM (supra), there appears to be no room of doubt that the Government of India is satisfied with regard to abuse and misappropriation of fund under MGNREGA Scheme. Keeping in view the satisfaction recorded by the Government of India through the letter (supra), communicated to the State Government, there appears to be no reason on the part of the Central as well as the State Government in keeping the matter pending with State agencies who have failed to discharge their duty in last four years. It is a fit case where keeping in view the statutory mandate of Section 27(2) of MGNREGA Act, 2005 as well as the material on record, the investigation should be referred to CBI for regular investigation and prosecution with regard to aforesaid three years' fund utilised in seven districts (supra).
31. So far as other districts are concerned, in view of the argument advanced by the parties' counsel and keeping in view the material on record as well as the common methodology used in all seven districts while abusing the fund under the Scheme and the spate under which the fund under the Scheme has been misappropriated in active connivance with the government authorities as well as elected representatives, it shall be appropriate that the C.B.I should hold preliminary enquiry under Chapter IX of CBI Manual for remaining districts of the State of U.P.
32. Mr. Bireshwar Nath, learned counsel appearing for the CBI during the course of argument submitted that the CBI is suffering from short of infrastructure and manpower to cope up with the situation.
33. A Division Bench of this Court while dealing with identical issue with regard to corruption in State machinery in a case reported in 2011 LCD 454 Vishwanath Chaturvedi versus Union of India, (delivered by one of us Hon'ble Devi Prasad Singh, J) had considered this aspect of the matter and directed the State Government to provide necessary assistance including the manpower to conclude the investigation. The judgment has been affirmed by Hon'ble Supreme Court.
34. Corruption, communalism and castism are three demons retarding the socio-economic development of this Country and lowering down the country's image and credibility.
35. Two research scholars of Australian National University Canberra and Australian Institute of Criminology, namely Adam Graycar and Russell G. Smith in their celebrated book, "Handbook of Global Research and Practice in Corruption" deals with corruption across the countries and opined that it is all pervasive and requires effective step to check it. The authors further opined that in case corruption is minimised or reduced to lower side, then there may be reduction of tax to the extent of 20%. Relevant portion is quoted below :
"Corruption has great significance for society and its governance. While the level of corruption varies among countries, the impacts of corruption disproportionally affect the poorest and most vulnerable in any society. When it is pervasive, corruption weakens economic growth and undermines the rule of law for every nation, and invariably deters investment. In rich countries corruption pushes taxes to higher levels than they need to be, and services are of lesser quality than they might be."
..................................
Corruption manifests itself in many ways and at different levels. Corrupt behaviour causes outrage to victims and those who value civil society, it impedes good government and administrative practice. In 2008 the World Economic forum (2008) estimated that corruption accounts for about 5 per cent of global GDP (about US $2.6 trillion) and furthermore it is estimated that every year around $1 trillion is paid in bribes and $40 billion is looted by corrupt political leaders.
Corruption poses threats to principles of democracy, justice and the economy. It affects all countries regardless of their level of development. Nevertheless, some countries experience corruption more than others, and of course some places have more corruption than others. There is a wide-spread but still non-random distribution of corruption in societies...............................
36. The scholars (supra) after extensive research of 10 years have noted the link between poor governance, corruption and economic growth and arrived to the conclusion how poor governance in corruption can be harmful for the standard of living and the distribution of income of citizens, reducing income per capita and literacy, while increasing infant mortality. The poor governance distorts public expenditure and increases poverty, reducing investment efficiency.
37. The sad part of present scenario is that the poor governance and corruption are giving set back to constitutional amendment done in Art. 243 (73rd Amendment) whereby a power has been delegated to lowest rug of elected representative of the country, i.e. Pradhan, Gram Sabha Members, Panchayat Members and Member of Blocks to supervise and develop the area within their jurisdiction.
38. The pervasive corruption under lowest rug of elected representative is reflected from the report of SQM (supra) and is a matter of great concern for the socio-economic development of the country.
It appears that while launching the Scheme under MGNREGA, effective measures have not been provided to check proliferation, abuse and misappropriation of fund under the Scheme making the entire society corrupt to some extent. Needless to say that in absence of an effective supervisory method with punitive action in the event of misappropriation and abuse of fund under the Scheme, the temptation to involve in corrupt practices at the lowest rug of elected representative and the bureaucracy or the government officials seems to become a routine feature.
39. We expect that the Government of India under its statutory power shall provide prompt effective measures to supervise the implementation of MGNREGA Scheme so that billions of rupees released for the purpose by the Government of India throughout the country does not become second strata of corruption and abuse of power to some extent making the entire society dealing with the government fund provided under the Scheme corrupt. Cross checking, quick punitive action is necessary to safeguard the public interest.
40.Keeping in view prima facie pervasive corruption, it shall be appropriate that the Central Bureau of Investigation should be provided necessary infrastructure and constitute a wing for regular monitor of Government fund under the MGNREGA Scheme or other alike Schemes without awaiting any permission from the Central and State Governments at par with FBI of the United States of America.
41.In a case reported in (2013)4 SCC 642 Niranjan Hemchandra Sashittal and another versus State of Maharashtra, their Lordships of Supreme Court have shown their deep concern with regard to prevailing corruption in the country. Hon'ble Supreme Court has observed as under :
"The Parliament intended to eradicate corruption and provide deterrent punishment when criminal culpability is proven. The intendment of the legislature has an immense social relevance. In the present day scenario, corruption has been treated to have the potentiality of corroding the marrows of the economy. ....................... An attitude to abuse the official position to extend favour in lieu of benefit is a crime against the collective and an anathema to the basic tenet of democracy, for it erodes the faith of the people in the system. It creates an incurable concavity in the Rule of Law. Be it noted, system of good governance is founded on collective faith in the institutions. If corrosions are allowed to continue by giving allowance to quash the proceedings in corruption cases solely because of delay without scrutinizing other relevant factors, a time may come when the unscrupulous people would foster and garner the tendency to pave the path of anarchism."
42. The spade under which the corruption is flourishing in this country requires not only immediate attention but effective tools and for that the independent agency like CBI must be given all forms of assistance with required infrastructure. The Government of India as well as the State Government must ensure to provide necessary assistance to CBI for effective and quick investigation of criminal cases assigned to it.
43. Edmund Burke said, to quote :
"An arbitrary system indeed must always be a corrupt one... There never was a man who thought he had no law but his own will, who did not soon find that he had no end but his own profit."
While writing a letter to Sheriffs of Bristol on 3.4.1777, Edmund Burke further said, to quote :
"Among a people generally corrupt, liberty cannot long exist."
Whether under present scenario, India's liberty, credibility and reputation are in peril ?
44. At the eve of 65th Republic Day of India, Shri Pranab Mukherjee, President of India has also shown his deep concern to the rampant corruption in the system. To quote :
"Corruption is a cancer that erodes democracy, and weakens the foundations of our state. If Indians are enraged, it is because they are witnessing corruption and waste of national resources. If governments do not remove these flaws, voters will remove governments."
(Extract from Hindustan Times dated 26th January, 2014.
Opinion expressed by first citizen of the country carried weight. However, removal by voters after lapse of five years by the peoples through election process or of the bureaucrats by the government does not seem to meet out the requirement of 'rule of law' unless guilty are punished. According to another report (HT, 26th January, 2014), 81.1% Indians while expressing their views on corruption opined that corruption has eaten the core of system. Reformation should be in such a manner so that not only by electoral process, the government may be uprooted but also guilty must be punished for their misdeeds in accordance with law to strengthen the peoples' faith in democratic polity.
45. It shall be appropriate that not only the Government of India but the State of U.P should strengthen its machinery and constitute multi-member 'State Quality Monitor' at State and District level to monitor the utilisation of fund under MGNREGA regularly. The members of State Quality Monitor must not be persons who have been assigned duty to allocate fund under MGNREGA or ensure its utility in a particular manner. The making of 'State Quality Monitor', an independent body may to some extent check the proliferation of fund under MGNREGA. In the meantime, it shall be appropriate for the Government of India to formulate appropriate rules and regulations or issue appropriate order in pursuance to statutory mandate to check the abuse of fund under the Scheme.
ORDER In view of above, we allow the writ petition with following order :
(I) A writ in the nature of mandamus is issued directing the Central Bureau of Investigation to investigate the abuse and misappropriation of fund as well as the abuse of power under Mahatma Gandhi National Rural Guarantee Scheme with regard to seven districts of State of U.P, namely Balrampur, Gonda, Mahoba, Sonbhadra, Sant Kabir Nagar, Mirzapur and Kushinagar in the years 2007 to 2010 with appropriate action and prosecution in accordance with law.
(II) A further writ in the nature of mandamus is issued directing the Central Bureau of Investigation to hold a preliminary enquiry under Chapter IX of CBI Manual with regard to other districts of the State of U.P for the aforesaid three years relating to abuse, misuse or misappropriation of fund provided by the Government of India under Mahatma Gandhi National Rural Guarantee Scheme(supra) with follow-up regular enquiry, if required.
(III) The State Government is further directed to provide all necessary assistance including manpower to CBI within a month from the date of receipt of request to proceed for investigation in pursuance to the present judgment.
(IV) A writ in the nature of mandamus is issued directing the State Government to consider for establishment of multi-member State Quality Monitor at district and State level to supervise unitilisation of fund under Mahatma Gandhi National Rural Guarantee Scheme till the Government of India frames appropriate rules, regulations or issue appropriate order keeping in view the observation made in the body of judgment.
The CBI shall submit status report to this Court at the interval of every three months with regard to investigation done in pursuance to the present judgment.
The writ petition is allowed accordingly. No order as to costs.
Since it is a final judgment, Registry shall ensure to list the writ petition before the present Bench to monitor the compliance of the judgment.
Let a copy of the judgment be sent to the Chief Secretary, Government of U.P., Principal Secretary, Home, Government of U.P., Secretary, Ministry of Law & Justice, Government of India, Director, C.B.I., New Delhi for compliance and appropriate action in pursuance to the observation made in the body of the judgment.
(Justice Ashok Pal Singh) (Justice Devi Prasad Singh) January 31, 2014
Let a certified copy of the present judgment be issued as per rules to the parties' counsel as well as Mr. Bireshwar Nath, learned counsel for C.B.I. within three days.
(Justice Ashok Pal Singh) (Justice Devi Prasad Singh)
January 31, 2014