Appeal No 538 of 1964
Appeal from the judgment and order dated September 25 1963 of the Patna High Court in Misc
Judicial Case No 1381 of 1962
K Rajendra Chaudhuri and K R Chaudhuri for the appel lant
M C Setalvad D P Singh section C Agarwal and M K Rama murthy for the respondent No 1
The Judgment of the Court was delivered by Raghubar Dayal J
This appeal on certificate granted by the High Court of Patna raises the question whether section 64A of the Motor Vehicles Act as introduced by the Motor Vehicles Bihar Amendment Act 1949 Bihar Act XXVII of 1950 hereinafter referred to as Bihar section 64A was not applicable to proceedings for grant of permit for inter State routes
This question however was decided by this Court in section K Pasari vs Abdul Ghafoor1
It was held that it was applicable to cases of stage carriage permits for inter State routes
The respondent prayed in view of the observations in Abdul Mateen vs Ram Kailash Pandey 2 for permission to challenge the validity of the aforesaid section on the ground that Parliament by the Motor Vehicles Amendment Act 1956 Act No 100 of 1956 has introduced another section 64A in the Act TV of 1939 hereinafter referred to as Central section 64A and that thereby Bihar section 64A must be taken to have been repealed by necessary implication
1 Civil Appeal No 306 of 1964 decided on 4 5 64
2  8 The question arises in this way
The appellant Tansukh Rai Jain was one of the applicants for the stage carriage permit for an inter State route between Bihar and Orissa
The State Transport Authority Bihar granted the permit to the United Motor Works  Co Ltd The appellant and respondent No 1 Nilratan Prasad Shaw appealed to the appellate authority the Deputy Minister of Transport Bihar against the order of the State Transport authority
The appellate authority reversed the order and granted the permit to Shaw respondent No 1
Thereafter the appellant went in revision to the Bihar Government in view of Bihar section 64A
The Transport Minister set aside the order of the appellate authority and granted the permit to Jain the appellant
Shaw respondent No 1 then filed a writ petition in the High Court and prayed for the quashing of the order of the Transport Minister and for the restoration of the order of the appellate authority granting the permit to him
The High Court allowed the writ petition holding that Bihar section 64A did not apply to stage carriage permits for interState routes and that therefore the Bihar Government was incompetent to revise the order of the appellate authority
It is urged for the respondent that the provisions of Bihar section 64A are repugnant to those of Central section 64A and are therefore void in view of cl
1 of article 254
It is also urged that the Central Act has repealed Bihar section 64A by enacting Central section 64A in the exercise of the power it had under the proviso to article 2542
If the provisions of Bihar section 64A are repugnant to any extent with those of Central section 64A Bihar section 64A will be void to the extent of the repugnancy in view of cl
1 of article 254 of the Constitution
As the Central Act was enacted by Parliament subsequent to the enactment of Bihar section 64A the provisions of the main part of cl
2 of article 254 will not apply to make Bihar section 64A good within the State of Bihar even though it had received the assent of the President as those provisions applied when the Central Act is enacted earlier than the State law
We have therefore to see whether the provisions of Bihar section 64A are repugnant to those of Central section 64A
The tests for determining whether a certain provision of a State law is repugnant to the provisions of a law made by Parliament are stated thus in Deep Chand vs The State of Uttar Pradesh1  Repugnancy between two statutes may thus be ascertained on the basis of the following three principles 1 1959 Supp 2 SCR 8 43 9 1 Whether there is direct conflict between the two provisions 2 Whether Parliament intended to lay down an exhaustive code in respect of the subject matter replacing the Act of the State Legislature and 3 Whether the law made by Parliament and the law made by the State Legislature occupy the same field
 We may now refer to the two sections Central section 64A and Bihar section 64A  Central section 64A  The State Transport Authority may either on its motion or on an application made to it call for the record of any case in which an order has been made by a Regional Transport Authority and in which no appeal lies and if it appears to the State Transport Authority that the order made by the Regional Transport Authority is improper or illegal the State Transport Authority may pass such order in relation to the case as it deems fit  Provided that the State Transport Authority shall not entertain any application from a person aggrieved by an order of a Regional Transport Authority unless the application is made within thirty days from the date of the order Provided further that the State Transport Authority shall not pass an order under this section prejudicial to any person without giving him a reasonable opportunity of being heard Bihar section 64A  The State Government may on application made to it in this behalf within thirty days of the passing of the order in the course of any proceedings taken under this Chapter by any authority or officer subordinate to it call for the records of such proceedings and after examining such records pass such order as it thinks fit
 The words subordinate to it  in Bihar section 64A were omitted by the Motor Vehicles Bihar Amendment Act 1953 Bihar Act 1 of 1954
This was however not noticed when Bihar section 64A was quoted in Pasari s case2
First we have to see whether there is any direct conflict between Central section 64A and Bihar section 64A
Such a conflict to a 1 Civil Appeal No 306 of 1964 decided on 4 5 64
Sup165 2 10 certain extent can arise if Bihar section 64A be construed literally
The language of Bihar section 64A is very general and empowers the State Government to revise any order made in the course of any proceedings taken under Chapter IV and pass such orders as it thinks fit
It must however be so construed if possible as not to come in conflict with the provisions of the Central Act
The power of revision vested in the State Government under its provisions are to come into play only when the Central Act does not provide any remedy against the orders proposed to be revised
Certain orders have been made appealable under section 64 of the Act
The power of revision therefore will arise and will be exercised after the appellate power is exhausted and not when the aggrieved person has not appealed against the order
Similarly it will be available only against non appealable orders after the aggrieved person has taken action under Central section 64A
The aggrieved person cannot have recourse to action under Bihar section 64A without first taking action under Central section 64A
To the extent that the language of Bihar section 64A can cover the cases open to appeal and to revision under section 64 and Central section 64A respectively it will be in direct conflict with the provisions of the Central Act and Bihar section 64A will be void to that extent
Bihar section 64A it is argued for the respondent is wholly void as by Central section 64A Parliament intended to lay down an exhaustive code in respect of the said subject matter of revisions
It is also urged that Bihar section 64A is wholly void as both that section and Central section 64A cover the same field
On these very grounds it is urged that by enacting Central section 64A Parliament has revealed by implication Bihar section 64A as it was competent to do in view of the proviso to cl
2 of article 254
Repeal by implication is not to be easily inferred
It is to be expected that when Parliament was aware of the provisions of Bihar section 64A and of article 254 of the Constitution and it intended to repeal Bihar section 64A it would have expressly stated so
There is nothing in Central section 64A or in any other provision of the Act which expressly states that Bihar section 64A is repealed
We are of opinion that the mere fact that Central section 64A deals with revisions against non appealable orders of the Regional Transport Authority is not sufficient to conclude that Parliament intended to repeal Bihar section 64A The language of Bihar section 64A is very wide and covers all orders made by any authority or officer in the course of any proceedings taken under Chapter TV of the Act
The only limitation on the exercise of the revisional power conferred on the State 11 by Bihar section 64A is that the State cannot suo motu exercise that power
It can exercise it when moved on application by some person aggrieved with the order he seeks to be revised
Such orders can be orders of the State Transport Authority the Regional Transport Authority or any other authority or officer
Central section 46A provides for revisions against the orders of the Regional Transport Authority and does not provide for revisions against the orders of the prescribed authority to whom appeals could be preferred under section 64
Central section 64A can therefore preclude the State Government from entertaining revisions against non appealable orders of the Regional Transport Authority but cannot preclude the operation of Bihar section 64A in regard to other orders
It is not provided in the Act that the order passed by the State Transport Authority in the exercise of its revisional jurisdiction under Central section 64A would be final
If such a provision had been made it might have been possible to urge
that Parliament intended that the order of the State Transport Authority in revision was not to be interfered with by any authority
The absence of such an expression therefore leads to the inference that Parliament did not intend that there be no interference with such orders of revision
Further it may be noticed that section 64 does not exhaust the list of all appealable orders
Its cl1 provides for an appeal by a person aggrieved by any other order which may be prescribed Prescribed  means prescribed by rules made under the Act 
Subsection 1 of section 68 empowers the State Government to make rules for the purpose of carrying into effect the provisions of Chapter IV which consists of sections 42 to 68
Sub section 2 specifies certain matters with respect to which rules be made
Its clause za mentions any other matter which is to be or may be prescribed 
It follows that the State Government can make rules providing for certain orders to be appealable under section 64 and thus reduce the orders which otherwise would come within the ambit of Central section 64A
The orders made appealable under the rules framed by a State would not be open to revision under section 64A as it provides for revisions against non appealable orders only
It is clear therefore that Parliament cannot be imputed the intention to make the provisions of section 64A to be so exhaustive and complete as to lead to the necessary conclusion that thereby it intended to repeal the provisions of Bihar section 64A which gave power to the State of Bihar to revise orders made by authorities or officers in proceedings under Chapter IV
The provisions of Bihar section 64A and Central section 64A are not such that they cannot be complied with simultaneously except for the contingency already mentioned ie when an application is 12 made to the State Government by a person aggrieved by such an order of the Regional Transport Authority which be not appealable under section 64
In such a case the State Government cannot exercise its power under Bihar section 64A against the orders of the Regional Transport Authority though it would be free to exercise that power at a later stage after the State Transport Authority had disposed of the revision if any made to it
Revision in the first instance against non appealable orders passed under Chapter IV must go to the State Transport Authority as in respect of such orders Parliament must be taken to have varied the provisions of Bihar section 64A
We therefore hold that Bihar section 64A is neither void nor has been repealed by Central section 64A and that its scope has been limited only to this extent that revisions against such orders of the Regional Transport Authority which are not appealable have to be preferred to the State Transport Authority
In the present case the State Government of Bihar revised the order made by the appellate authority
It was competent to do so
The High Court was in error in holding otherwise
We therefore allow the appeal with costs set aside the order of the High Court and restore that of the State of Bihar granting permit to the appellant Jain
Appeal allowed


Summary:
The Bihar State Legislature by Act 27 of 1950 introduced section 64A into the Motor Vehicles Act Central Act IV of 1939
By that section power was given to the State Government to revise orders of authorities and officers in proceedings under Chapter IV of the Motor Vehicles Act
Subsequent to this by Act 100 of 1956 Parliament introduced another section 64A into the Act providing that revision would lie to the State Transport Authority from the non appealable orders of Regional Transport Authority
Respondent No 1 filed a writ petition before the High Court challenging an order of the State Government under section 64A of Bihar Act 27 of 1950
By the said order the State Government had granted a stage carriage permit to the appellant setting aside an order of the Appellate Authority in favour of Respondent No 1
The High Court held that Bihar section 64A did not apply to stage carriage permits for inter State routes and therefore the order of the State Government made under that section was bad
The appellant thereupon filed an appeal before the Supreme Court with certificate
Before the appeal was heard the Supreme Court had already decided in another case that there was nothing in Bihar section 64A to render it inapplicable to stage carriage permits for inter State routes thus reversing the High Court s decision on that point
Respondent No 1therefore sought and was given permission to challenge the order of the State Government on another ground namely that Central section 64A had by vitrue of the provisions of cls
1 and 2 of article 254 of the Constitution rendered void or impliedly repealed Bihar section 64A It was urged that Central section 64A was exhaustive that it covered the same field as Bihar section 64A and that the two sections were directly repugnant
HELD  i Central section 64A could not said to be exhaustive
While it provided for revision to the State Transport Authority against the non appealable orders of the Regional Transport Authority it did not confer any finality on the orders passed by the former and it was open to the Bihar Legislature to provide further remedies
Moreover the scope of Central section 64A could be enlarged or reduced by the State Government which had power under section 68 to determine which orders of the Regional Transport Authority would be appealable
11 B C F H ii Nor could it be said that Central section 64A and Bihar section 64A covered the same field
Central section 64A only dealt with revisions against the orders of the Regional Transport Authority while Bihar section 64A bad a much wider operation giving to the State Government power to revise orders of any authority or officer in proceedings under Ch
IV of the Act
Such orders could be those of the State Transport Authority and the Appellate Authority besides other authorities and officers 11 C D G H 7 iii The language of Bihar section 64A is very general Literally construed it can be said to be in conflict with both section 64 and Central section 64A inasmuch as it can cover cases open to appeal under the former section and to revision under the latter section
To the extent of this repugnance Bihar section 64A is void
But the section as a whole is not void nor has it been repealed by Central section 64A its scope has been limited only to this extent that revisions against such orders of the Regional Transport Authority which are not appealable have to be preferred to the State Transport Authority
110 D H 12C Deep Chand vs State of Uttar Pradesh 1959 Supp 2 SCR 8 applied
section K Pasari vs Abdul Ghafoor CA No 306 of 1964 decided on 4 5 64 and Abdul Mateen vs Ram Kailash Pandey   referred to
In the present case the State Government of Bihar revised the order made by the Appellate Authority
It was competent to do so
The High Court was in error in holding otherwise