5.2 In the communication granting extension of time with levy
of penalty, penalty is levied by the State Government
invoking Clause 3.5.5(v) of the OPWD Code. However, it is
required to be noted that Clause 3.5.5(v) of the OPWD
Code shall be applicable in a case where the contract is
terminated. It permits the appropriate authority/State to
terminate the contract with penalty when the progress of
work is not as per the conditions of contract. Here, it is not
a case of termination of the contract. Therefore, Clause
3.5.5(v) of the OPWD Code which has been invoked in the
communication granting extension of time but with levy of
penalty shall not be applicable at all.
5.3 So far as the reliance placed upon Clause 3.5.30 of the
OPWD Code by learned counsel appearing on behalf of the
State is concerned, even under the said clause, there is no
provision for imposition of penalty while granting extension
of time. Clause 3.5.30 only provides that while
communicating to the contractor of extension of time, he
must be informed that extension is granted without
prejudice to State Government’s right to levy compensation
under relevant clause of the contract. If the relevant clause
of the contract is seen and/or considered, there is no
condition stipulated in the contract that while granting the
extension of time, there may be levy of penalty. The
relevant clause with respect to the extension of time is
Clause-4, which has been reproduced hereinabove. Neither
the contract nor the OPWD code provides for imposition of
penalty while extending the contract. Therefore, levy of
penalty while granting extension of time is wholly without
authority of the law and is illegal. The same has been
rightly set aside by the High Court.
5.4 Even otherwise, it is required to be noted that before the
levy of penalty of a particular percentage, while granting
extension of time, no opportunity of being heard has been
given to the contractor as to why the penalty may not be
imposed while granting extension of time and at what rate.
In a given case, the State Government might be justified in
imposing the penalty while granting the extension.
However, the contractor must be put to notice that
extension of time can be granted on imposition of
reasonable penalty. However, without putting the
contractor to notice, unilaterally, the State is not justified
in levying the penalty while granting extension of time.
6. In view of the above and for the reasons stated above, the
High Court has rightly set aside the penalty levied while
granting extension of time.
REPORTABLE
IN THE SUPREME COURT OF INDIA
CIVIL APPELLATE JURISDICTION
CIVIL APPEAL NO. 4934 OF 2022
The State of Odisha & Ors. Vs Radheshyam Agrawal
Author: M.R. SHAH, J.
Dated: MARCH 24, 2023.
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