A.RAJAGOPALAN Vs DIST.COLLECTOR.THIRUCHIRAPALLI DIS.&ORS
Bench: HON'BLE MRS. JUSTICE R. BANUMATHI, HON'BLE MR. JUSTICE R. SUBHASH REDDY
Judgment by: HON'BLE MRS. JUSTICE R. BANUMATHI
Case number: C.A. No.-000251-000256 / 2015
Diary number: 34506 / 2012
Advocates: L. K. PANDEY Vs
VIKAS MEHTA
REPORTABLE
IN THE SUPREME COURT OF INDIA CIVIL APPELLATE JURISDICTION
CIVIL APPEAL NOS.251-256 OF 2015
A. RAJAGOPALAN ETC. ...Appellant
VERSUS
THE DISTRICT COLLECTOR, ...Respondents THIRUCHIRAPALLI DISTRICT & ORS. & ETC.
WITH
CIVIL APPEAL NOS.257-258 OF 2015 CIVIL APPEAL NOS.259-260 OF 2015 CIVIL APPEAL NOS.261-262 OF 2015
CIVIL APPEAL NOS.1624-1625 OF 2015 CONMT. PET.(C) NO.51/2013 IN C.A. NO.2252 OF 2009
CONMT. PET.(C) NO.173/2013 IN C.A. NO.2252 OF 2009 CONMT. PET.(C) NO.750/2017 IN C.A. NO.2251 OF 2009
J U D G M E N T
R. BANUMATHI, J.
These appeals arise out of the judgment dated 09.03.2012
passed by the Madurai Bench of Madras High Court in WA (MD)
Nos.1285-1290 of 2011 in and by which the High Court has set
aside the order of the Single Judge and directed the respondents
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to draw the seniority list taking Direct recruit Assistants, Promotee
graduate Assistants and Promotee non-graduate Assistants as
one group for promotion as Deputy Tahsildar. The order of
dismissal of the review petitions by the High Court is also
impugned in these appeals.
2. The issue involved in these appeals is the implementation
of the amended Rule 5(g) in Annexure-III, item No. (ii) of the Tamil
Nadu Revenue Subordinate Service Rules (TNRSS Rules)
coupled with the judgment of the Supreme Court in M.
Rathinaswami and Others v. State of Tamil Nadu and Others
(2009) 5 SCC 625 by which the Supreme Court read down the
Rule insofar as the Promotee graduate Assistants and upheld the
validity of the Rule to the extent it gives preference to the Direct
recruit Assistants over the Promotee non-graduate Assistants.
The post of Assistant in Revenue Department is filled up by two
sources; one is by direct recruitment through Tamil Nadu Public
Service Commission and other is by promotion from the category
of Junior Assistants with the minimum qualification of SSLC. The
post of Assistant in Revenue Department in the State of Tamil
Nadu is governed by the Tamil Nadu Ministerial Service Rules.
The said Rules are framed in exercise of powers conferred by
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proviso to Article 309 of the Constitution of India. As per the
original TNRSS Rules, the inter-se seniority of the Direct recruit
Assistants in the Districts shall be fixed in the following cyclical
order irrespective of the date of their joining of the duty:-
Annexure IX (Referred to in Rule 3g(b)(ii)
First two vacancies : Persons appointed by promotion
Third vacancy : Persons appointed by direct recruitment
Fourth and fifth vacancies
: Persons appointed by promotion
Sixth vacancy : Persons appointed by direct recruitment
3. The Direct recruit Assistants in Revenue Department
submitted representation that they be given preferential treatment
in the matter of promotion to the cadre of Deputy Tahsildar
without basing their seniority in the Assistant list. In G.O. No.884
dated 12.08.1992, Revenue Department directed the Special
Commissioner and Commissioner of Revenue Administration to
send necessary draft amendment to the Special Rules to the
TNRSS Rules so as to consider the cases of Direct recruit
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Assistants in the District Revenue Administration on completion of
five years training for inclusion in the Deputy Tahsildar list.
Accordingly, the Principal Commissioner and Commissioner of
Revenue Administration had sent proposals for amendment to
Rule 5(g) and Annexure-III to Special Rules for the TNRSS. The
State Government approved the draft amendment to Rule 5(g)
and Annexure-III Item (ii) to the Special Rules for the TNRSS
Rules in G.O. No.133 dated 07.02.1995. The said amendment
reads as under:-
“NOTIFICATION
In exercise of the powers conferred by the proviso to
Article 309 of the Constitution of India, the Governor of Tamil
Nadu hereby makes the following amendments to the Special
Rules for the Tamil Nadu Revenue Subordinate Service Section
28 in Volume III of the Tamil Nadu Services Manual, 1970.
2. The amendments hereby made shall be deemed to have
come into force on the 4th December, 1978.
AMENDMENTS
……..
2. In Annexure III, in item (ii), for the last proviso, the following
provision(s) shall be substituted namely:-
“provided also that an Assistant appointed by direct
recruitment in the office of the erstwhile Board of
Revenue, who has completed a total service of five
years, passed all the tests prescribed and undergone
training as Firka Revenue Inspector for a period of two
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years successfully shall be eligible for inclusion of his
name in the approved list of Deputy Tahsildars for
Madras City, above his seniors appointed other than by
direct recruitment or for re-fixation of his seniority over
such seniority, if his name has already been included in
the list of Deputy Tahsildars. The consideration of his
claim shall be against the first vacancy that follows the
carried over vacancies.
3. After the proviso so substituted, the following proviso
shall be added:-
“Provided also that an Assistant appointed by direct
recruitment in the District Revenue Unit, who has
completed a total period of five years, passed all the
tests prescribed and undergone training as Firka
Renevue Inspector for a period of two years
successfully, shall be eligible for inclusion of his name
in the approved list of Deputy Tahsildars in the District
above his seniors appointed other than by direct
recruitment or for re-fixation of his seniority over such
seniors, if his name has already been included in the
list of Deputy Tahsildars. The consideration of his claim
shall be against the first vacancy that follows the
carried over vacancies”.
4. The Promotee Assistants challenged the said amendment
by filing O.A. No.2113 of 1995 before the Tamil Nadu
Administrative Tribunal, Chennai. The Tribunal set aside the
amendment and the G.O. No.884 dated 12.08.1992 and G.O.
No.133 dated 07.02.1995 vide its order dated 26.02.1997.
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Challenging the order of the Tribunal, the Government of Tamil
Nadu filed SLP(C) Nos.1821-1823 of 1999 (C.A.Nos.2727-2729
of 2000) in which the Supreme Court granted interim stay on
16.04.1999. The same was subsequently modified by the order
dated 10.04.2000 in which the Supreme Court specifically
directed that the stay of reversion shall continue and G.O.
Nos.884 and 133 will be implemented prospectively i.e. with
effect from 07.02.1995 and not retrospectively with a mention
that the promotions made will be subject to the final result of the
appeal. Since the SLPs were filed after the decision in L.
Chandra Kumar v. Union of India and Others (1997) 3 SCC 261,
the Supreme Court by its order dated 13.08.2003 disposed of the
appeals filed by the State of Tamil Nadu by giving liberty to the
State of Tamil Nadu to approach the High Court. Pursuant to the
order of the Supreme Court, the State filed Writ Petition in W.P.
Nos.27173-27174 of 2003 before the High Court of Madras
challenging the order of the Tribunal dated 26.02.1997. By the
common judgment dated 10.09.2005, the High Court set aside
the order of the Tribunal dated 26.02.1997 and upheld the G.O.
Nos.884 and 133 dated 12.08.1992 and 07.02.1995.
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5. Aggrieved by the order of the High Court, Promotee
Assistants filed appeal before the Supreme Court in CA
Nos.2251-2252 of 2009. The Supreme Court upheld the G.O.
No.884 dated 12.08.1992 and G.O.No.133 dated 07.02.1995 and
partly allowed the appeals vide judgment dated 08.04.2009 in M.
Rathinaswami v. State of T.N. (2009) 5 SCC 625. The Supreme
Court upheld the validity of the amendment to Rule 5(g) and
Annexure-III item(ii) of TNRSS Rules to the extent that it gives
preference to the Direct recruit Assistants over the Promotee non-
graduate Assistants observing that the very basis for the
distinction sought to be drawn is that direct recruits are graduates
and hence, intellectually superior to non-graduates. However, the
Supreme Court read down the rule to save it from becoming
violative of Articles 14 and 16 of the Constitution and held that
once a promotee becomes a graduate, there cannot be any
rational basis for making a distinction vis-à-vis direct recruits and
held that the rule is inapplicable to the promotees who are
graduates. In paras No. (19), (22) and (32), the Supreme Court
held as under:-
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“19. In our opinion, by the very same logic given by the
respondent and the High Court, a promotee Assistant who is
also a graduate has to be placed on a par with the direct
recruits because he has also got a degree. In our opinion, we
have to hence read down the impugned amendment and
interpret it as inapplicable to those promotee Assistants who
are also graduates/postgraduates. In other words, the
impugned amendment will only enable the direct recruits to
be placed above those promotee Assistants who are non-
graduates for the purpose of promotion as Deputy Tahsildar.
22. In the present case, both the directly recruited Assistants
and promoted Assistants have been integrated into one
cadre of Assistants. No doubt, even after this integration for
further classification for promotion higher educational
qualifications can possibly be a rational basis, but in our
opinion there can certainly be no further classification
between direct recruits and those promotee Assistants who
have acquired the graduation qualification whether before
joining as Junior Assistant or thereafter. Once a promotee
becomes a graduate we cannot see any rational basis for
discrimination against him vis-à-vis direct recruits.
32. For the reasons given above these appeals are partly
allowed and the impugned judgment is partly set aside, and it
is held that the impugned rule so far as it places directly
recruited Assistants above the promotees for promotion as
Deputy Tahsildar shall only apply to those promotees who
are non-graduates, but it is inapplicable to those promotees
who are graduates.”
6. In compliance of the judgment of the Supreme Court, the
Government issued directions to the Principal Secretary and
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Commissioner of Revenue Administration, Chennai in
Letter (MS) No.305 dated 07.08.2009 to implement the order of
the Supreme Court in letter and spirit and the District Collectors
were instructed to take necessary follow up action to implement
the order. Accordingly, the District Collectors of Tiruchirappalli,
Sivagangai, Tirunelveli, Madurai, Coimbatore and Vellore have
passed orders redrawing the seniority list by treating the Direct
recruit Assistants on par with the Promotee graduate Assistants
and redrawn the panel of Deputy Tahsildars and this has effected
the seniority of number of Direct recruit Assistants.
7. Being aggrieved by the orders of the District Collectors, a
batch of writ petitions were filed by the Promotee non-graduate
Assistants, praying to stay the orders of redrawal of the seniority
list. The Direct recruit Assistants also filed a batch of writ petitions
against the revised list of Deputy Tahsildars by District Collectors
of Tiruchirappalli, Sivaganga and Tirunelveli inter-alia challenging
their reversion inter alia contending that the revised lists also
contained the names of Promotee Assistants who are non-
graduates. The Single Judge of the High Court initially vide order
dated 19.04.2010 directed the authorities to maintain status quo
in the writ petitions filed by Direct recruit Assistants. However, the
9
Single Judge vide order dated 12.10.2011 dismissed the writ
petitions holding that the judgment of the Supreme Court dated
08.04.2009 is declaratory and binding on all concerned. The
learned Single Judge held that no direction to implement the
order of the Supreme Court is necessary as the direction of the
Supreme Court is bound to be obeyed by all authorities
concerned including the District Collectors.
8. Challenging the judgment of the Single Judge dated
12.10.2011, a batch of writ appeals were filed before the Madurai
Bench of Madras High Court. The Madurai Bench vide common
judgment dated 09.03.2012 set aside the judgment of the Single
Judge and directed the State of Tamil Nadu to draw the seniority
list taking Direct recruit Assistants, graduate promotees as well as
non-graduate promotees forming as one group and directed the
State to draw the panel as on 04.12.1978 and reconsider the
promotion subject to the candidates satisfying the criteria required
under the rules within a period of two months. While passing the
impugned judgment, the Division Bench took into consideration
the Letter (MS) No.392 dated 30.12.2011 in and by which the
government accepted the proposal of the Principal Secretary,
Revenue to dispense with the degree or graduation as minimum
10
educational qualification for the post of Deputy Tahsildar and
directed to take non-graduate promotees along with graduate
promotees and direct recruits as one group, based on the
seniority as on 04.12.1978 for the post of Deputy Tahsildar. The
Division Bench also directed the State not to disturb the cases of
those candidates who were already promoted but not in service
either on account of retirement on superannuation or by reason of
death. The review petitions filed by the appellants herein were
dismissed by the Madurai bench of Madras High Court. Being
aggrieved, the appellants and others have filed these appeals.
9. We have heard Mr. Shekhar Naphade and Mr. P.S.
Narsimha, learned senior counsel appearing for the appellants.
We have heard Mr. V. Giri, learned senior counsel appearing for
the State of Tamil Nadu. We have heard Mrs. Nalini
Chidambaram and Mr. V. Krishnamurthy, learned senior counsel
appearing for Promotee graduate Assistants. We have heard Mr.
R. Viduthalai, learned senior counsel appearing for Promotee
non-graduate Assistants. We have perused the impugned
judgment and materials on record.
10. The question involved in these appeals is the
implementation of the amendment to Rule 5(g) of TNRSS Rules
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and Annexure-III, item(ii) coupled with the judgment of the
Supreme Court in Rathinaswami in and by which the Supreme
Court upheld the amendment to the rule qua Promotee non-
graduate Assistants and read down the rule insofar as the
Promotee graduate Assistants.
11. The State of Tamil Nadu issued G.O. No.884 whereby
directions were issued to amend Rule 5(g) and Annexure-III,
item(ii) of TNRSS Rules retrospectively i.e. with effect from
04.12.1978. Accordingly, G.O. No.133 dated 07.02.1995 was
issued providing amendment to the statutory Rules. The validity
of the amendment to Rule 5(g) and Annexure-III item (ii) to the
TNRSS Rules in G.O. Nos. 884 and 133 dated 12.08.1992 and
07.02.1995 has been upheld by the Supreme Court in
Rathinaswami. While upholding the amendment to the Rule, the
Supreme Court read down into the Rule to the extent that it gives
preference to the Direct Recruit Assistants over the Promotee
Assistants who are graduates. The Supreme Court held that the
amended rule giving preference to the Direct recruit Assistants
would be applicable only to the Promotee non-graduate
Assistants and Rule would be inapplicable to the Promotee
Assistants who are graduates.
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12. In the judgment of the Supreme Court in Rathinaswami,
there is no specific clarification as to the mode of implementation
of the judgment dated 08.04.2009 and as to how the Promotee
graduate Assistants and Direct recruit Assistants are to be
integrated for considering them for promotion as Deputy
Tahsildars; whether prospectively or retrospectively with effect
from 04.12.1978.
13. The State of Tamil Nadu by its Letter (MS) No.305 dated
07.08.2009 directed the District Collectors to implement the order
of the Supreme Court in letter and spirit. In the absence of any
clarification in the judgment of the Supreme Court, the District
Collectors passed various types of orders reversing promotions
effected between 1995 to 2009 and placing Promotee graduate
Assistants in the earlier panel by revising the seniority thereby
upsetting the promotions not only in the rank of Deputy Tahsildars
but also further promotions were effected. It is stated that some
of the District Collectors implemented the order of the Supreme
Court dated 08.04.2009 with retrospective effect i.e. 04.12.1978.
After amendment of Tamil Nadu Revenue Subordinate Service
Rules vide G.O. No.133 dated 07.02.1995, promotions were
13
effected in all the categories. Promotions were effected not only
to the category of Deputy Tahsildar but further promotions are
made to the post of Tahsildars, Deputy Collectors, District
Revenue Officers etc. Be it noted that in the judgment of this
Court dated 08.04.2009, no specific directions were issued for
revision of seniority list or to upset the promotions which were
already given.
14. Letter No.392 dated 30.12.2011:- The Supreme Court in
paras (25) and (26) in Rathinaswami held that “whether graduate
degree is a sufficient basis for classification vis-à-vis non-
graduates and whether such classification has rationale relation
to the nature of duties of a Deputy Tahsildar” is for the State of
Tamil Nadu to decide and “only executive authorities have
expertise in administrative matters and it is ordinarily not proper
for the Supreme Court to sit in appeal over the decisions unless it
is something totally arbitrary or shocking.” Based on the
observations of the Supreme Court, Principal Secretary to the
State Government vide its Letter (MS) No.392 dated 30.12.2011
recommended for amendment to Rule 5(g) of the TNRSS Rules
Annexure-III, item (ii) to the effect that it may not be appropriate to
prescribe graduation or degree as minimum educational
14
qualification for the post of Deputy Tahsildar. The State of Tamil
Nadu vide its letter dated 30.12.2011 accepted the
recommendation of the Principal Secretary/Commissioner of
Revenue Administration and directed not to prescribe degree or
graduation as minimum qualification for the post of Deputy
Tahsildar. Acceptance of the recommendation of dispensing with
the graduation as the essential qualification is still under
consideration of the State Government. In that letter, Government
merely accepted the recommendations of the Principal Secretary
and Commissioner of Revenue who has opined that it may not be
appropriate to prescribe graduate qualification as essential
qualification for the post of Deputy Tahsildar. It is to be pointed
out that at this stage, appointment to the post of Deputy Tahsildar
is governed by rules framed under proviso to Article 309. In the
absence of any amendment to such rules, the decision of the
Government, as accepted in the letter dated 30.12.2011 issued in
Letter (MS) No.392, has no consequence so far as non-graduate
Promotees are concerned.
15. The Division Bench did not keep in view that the letter
No.392 dated 30.12.2011 is still only a proposal and the rules are
yet to be amended. The Division Bench fell in error by relying
15
upon the said letter dated 30.12.2011 and erred in directing the
State to treat the Promotee non-graduate Assistants, Promotee
graduate Assistants and Direct recruit Assistants as one category
and draw revised seniority list for the purpose of promotion to the
post of Deputy Tahsildar. The Division Bench failed to notice that
the amendment to Rule 5(g) of TNRSS Rules by G.O. No.133
dated 07.02.1995 has been upheld by the Supreme Court and
has attained finality. The direction of the Division Bench to treat
all three categories viz. Promotee non-graduate Assistants,
Promotee graduate Assistants and Direct recruit Assistants as
one group for the promotion to the post of Deputy Tahsildar
virtually amounts to reversing the judgment of the Supreme Court.
In our considered view, the direction of the Division Bench in the
impugned judgment is wholly misconceived.
16. In these appeals, the State of Tamil Nadu has filed two
counters. In the counter filed in November, 2013, in para No. (5),
the State Government has taken a stand that “the direction of the
Division Bench in the impugned judgment categories non-
graduate promotee along with graduate promotee and Direct
Recruits” as “one group” is aggreable to the State Government
and only on that basis, the State Government issued letter
16
No.392 dated 30.12.2011. The stand of the State Government in
para No. (5) of its counter filed in November, 2013 is
unacceptable as it is in clear deviation from the judgment of the
Supreme Court in Rathinaswami. Of course, subsequently in the
common rejoinder filed by the State of Tamil Nadu, the State has
taken the stand that the averments raised by the State
Government in para No. (5) of the affidavit are not acceptable and
not a correct stand. In the rejoinder, it is further averred that
based on the amended rule since promotions have been effected,
government has decided not to disturb the 313 Direct recruit
Assistants who had already been included in the panel of Deputy
Tahsildars from the year 1995 and further promotions have been
effected as Tahsildars etc. The State Government has also taken
a clear stand that the implementation of the order of the High
Court dated 09.03.2012 with effect from 04.12.1978 would result
in reversion of 313 Direct recruit Assistants who had already been
promoted by virtue of preferential treatment. The stand of the
State Government not to disturb 313 Direct recruit Assistants
reads as under:-
“….the Government considering the earlier G.Os 884 and 133
having been implemented from 1995 and that too with the
intervention of orders of the Supreme Court and the High Court
17
have decided not to disturb the 313 DRAs who had already been
included in the panel of Deputy Tahsildars from the year 1995
and to implement orders of the Supreme Court from the date of
orders i.e. 08.04.2009……”
17. As discussed earlier, as per G.O. Nos. 884 and 133 dated
12.08.1992 and 07.02.1995 respectively and the amendment to
Rule 5(g) of TNRSS Rules had been upheld by the Supreme
Court, of course, by reading down into the Rule that the Promotee
graduate Assistants are to be treated on par with Direct recruit
Assistants. The classification of the “Promotee graduate
Assistants” on par with Direct recruit Assistants is only by virtue of
the order of the Supreme Court dated 08.04.2009. As rightly
pointed out by Mr. Shekhar Naphade, learned senior counsel
appearing for the appellants and Mr. V. Giri, learned senior
counsel appearing for the State, the implementation of the order
with effect from 04.12.1978 would create unprecedented
confusion and upset the settled position of Direct recruit
Assistants who had been promoted from 1995 till 2009 by virtue
of the amended Rule conferring preferential treatment on the
Direct recruit Assistants. If such a course of action is permitted, it
would seriously prejudice the rights of those of the Direct recruit
Assistants who have been promoted from 1995.
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18. By wrongly relying on the letter dated 30.12.2011 of the
Government, in the impugned judgment, the High Court has held
that graduate and non-graduate Promotee Assistants would be
considered as one single category along with Assistants and the
impugned judgment of the High Court cannot be sustained and is
liable to be set aside.
19. In the result, the impugned judgement of the High Court is
set aside and these appeals are allowed with the following
observations and directions:-
(i) Promotions of the Direct recruit Assistants effected between
07.02.1995 and 08.04.2009 and their seniority in their
respective positions as on date, shall not be disturbed;
(ii) The benefit extended to the graduate promotee Assistants
by placing them on par with Direct recruit Assistants is to
be given effect to prospectively from the date of judgment
of this Court dated 08.04.2009 rendered in the case of M.
Rathinaswami v. State of T.N. reported in (2009) 5 SCC
625;
(iii) After 08.04.2009, the promotion to the post of Deputy
Tahsildar from its feeder category, i.e., Direct recruit
Assistants and Promotee graduate Assistants, shall be
strictly in accordance with the judgment of this Court
referred above, i.e., treating Promotee graduate
Assistants on par with Direct recruit Assistants. Such
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promotion shall be given effect to, without reference to
any interim order(s) passed by the High Court;
(iv) If any panels are prepared, and promotions are given,
after 08.04.2009 for promoting the Assistants to the post
of Deputy Tahsildars in Tamil Nadu Revenue Subordinate
Service contrary to the judgment of this Court dated
08.04.2009, such panels and promotions have to be
revised so as to bring in conformity with the judgment of
this Court referred above;
(v) By virtue of the judgment of this Court dated 08.04.2009,
referred above, Promotee graduate Assistants are placed
on par with Direct recruit Assistants. So far as Promotee
non-graduate Assistants are concerned, the amended rule
holds the field, which gives preferential treatment to Direct
recruit Assistants, over Promotee non-graduate
Assistants;
(vi) Promotee non-graduate Assistants, who are impleaded as
party respondents in these appeals, are not entitled to any
directions in their favour, as much as, all these appeals
are preferred by Direct recruit Assistants;
(vii) While implementing the above directions, if the seniority
and promotion, of the persons who are already retired or
dead, is affected in any manner, payments made on
account of such seniority and promotion earlier granted to
them during the interregnum period, i.e., from 08.04.2009
till this date shall not be recovered.
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(viii) So far as Promotee non-graduate Assistants are
concerned, it is open for them to pursue with the
Government for appropriate amendment to the Rules, in
which event we keep it open to Government to consider
such request on its own merits.
…....……………………….J. [R. BANUMATHI]
…...………………………..J. [R. SUBHASH REDDY]
New Delhi; March 12, 2019
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