CHANDIGARH ADMINISTRATION, UNION TERRITORY, CHANDIGARH AND ORS. v. AJAY MANCHANDA ETC.

A

MARCH 26, 1996 B

Constitution of India, 1950 A1ticle 311(2}-Second Proviso-Clause (b). c Dismissalc-Dispensing with enquiry--l'olice Office1--Allegation of ex- ortion-Enquiry by Deputy Superintendent of Police-Report confinning al- legation and stating that complainant and witnesses were threatened and terrorised by Police Officer--f'anic-stricken witnesses and complainant not willing to pursue the matter--f'assing dismissal order in such circumstances D dispensing with .enquirj-Held valid. • Police Officer-Extortionc-Complaint by Advocate-Enquiry by Super- -t- intendent of Police-Report that Police Officer misused his official position and extorted money-But no report of terrorising the witness or com- ' . . E plainant-<::omplainant writing to Senior Superintendent of Police that in view of compromise with Police Officer he does not wish to pursue the com- plaint-SSP infening from such· writing. that complainant was terrorised by Police Office,-,[nference held not justified-Dismissal of Police Officer with~!li enquily held not valid-Service Law. ·

F Judicial Review

· Service Law-Civil servanrDismissal without regular departmelltal enqui1y-Judicial review-Scope and extent of

The respondents A and K, both Sub-Inspectors of Police in the State G of Punjab, were dismissed from service under clause (b) of Second Proviso to Article 311(2) i.e. without regular departmental enquiry. The charge against the former was that as an Investigation Officer in a case he had extorted Rs. 50,000 from an accused and had further demanded the same amount from him. The Deputy Superintendent of Police who conducted the enquiry reported that the complaintant and other witnesses were so ter- 918

CHANDIGARH ADMN., UNION TERRITORYv. A. MANCHANDA 919

rorised by threats given by that they had expressed their inability to . A pursue·the matter in the court of faw or in any other enquiry. against him an'd ·to make any formal statement in this regard. On the basis of this report the Senior Superintendent of Poiice was satisfied that in vie\\> of inability of the witnesses to come forward i to depose against the delinqnent ~ ' . ,.. -~h ~ ~ -·~·

officer a regular departmental enquiry was uot reasonably prac"ticable. B Conseque'!tly he passed the ~}~mi,ssal 0 rde~ i!' e~e~cise of the ~ow~r. under 1 Article 311(2)(b). The dismissal order was successfully challenged before the Ad.;.inistrative T~ibu~al ~hlch.held th~t (i) •tth~"i~p~gned . • . ""' . • '. f > ' ·...' • o~der h,-, doe~ . not state.that A had given any threats .to any of t_he witnesses. or the complaina~t;& .{nd (ii). mer~iy 4• .- ' ' • becan~e ' a po'lice otf.~er .,, ... w~~ the ~ccuse!l, it J. . ' . ' .. _, -

cannot -· be r presumed . ... that no.one . •· will ~· come. . forward . .. - to depose __·: ~.-· against him. C It.also commented on the Senior Sup,erintendent of Police observing that .. he "has taken, - '·' the ,, matter. '' -· ' in• 'a very, casual : manner . "' .- - " ;.without giving . . due. - . ' ' • ._.. ; ' ,_ u '~·- consideration and applying his dispassionate discretion in the issnance of· the impugned . order. and- . coming 'to the , conclusioil to dispense-. ;,...witll"'the '-. ,_ '. - . regular en_quiry". 1 r ,,..,-•L a~ ... ~ t • , • •. '~""'.-.•. '""' • ,_ ~- D :_.;.'~'1 .,,. "ll t•· ., ' ..• The charge against the other respondent K was .that he .had extorted an ~mount of rupees :nine hundred _from- an. advocate on .the. ,pretext. ~f .a minor.traffic violation. The .Snperintendent·of.·Police (headquarters) who ·conducted the·enquiry·reported that K had committed gross misuse of his official position·_ and extorted money from an innoceiat· victim, .the _.cOm- E plainant-Advocate, as a fine for violation of traffic regulation and misap· · 'prcipriated ·a major pa<! of tlie amount to himself•. However, he did not report that K had either terrorised the complainant or the witnesses. On receiving the Enquiry ReporUhe Senior Superintendent of Police wrote to ;the complainant-Advocate .to meet.him in connection with enquiry,c but the F ··I ·fatter requested for an alternative date. However, in response to second letter of SSP the complainant-Advocate ·replied that .since a :compromise had been effected between him and K by respectable persons, he does.not ·Wish to pursue· the complaint. From this second Jetter the SSP inferred and conduded that the complainant was terrorised by K _and had been won ·o'Ver bf holding out threats. On that basis, he concluded that'it was not G reasonably practicabJe·to hold an enquiry against the respondent. Conse- i' 'quently 'he pa'ssed· an iirder 'dismissing K from service resorting to "proviso(b) to Article 311(2)!•This· order was also· sucfessfully challenged before the Administrative Tribunal ·which held that there was no .basis upon which the SSP could have arrived at the conclusion that (i) the H '~i •. -1' 1 .(1 ;f" .'!':.·•·.!I'-'·•~·,.· ··1!

~I '

p. 920

A complainant was won over by threats ; an!! (ii) it was pot reasonably practicable to bold an enquiry, Against th• 0rders passed by the Tribun.al in both the cases appeals were preferre!l before this Court.

Disposin.g of the appe11ls, this Court

2Copy pinpoint2. It Is true that in such matters the courts{fribunals are the only· protection for the persons proceeded against and that unless strict stand- D ards are adopted for judging the "satisfaction", the government officials will· have no ·protection against the arbitrary acts and orders of the superior officers who may succumb to the temptation of adopting the e.asier course 1of dismissinl}'removinglreducing in rank the lower officers without holding an enquiry instead of following the regular procedures prescribed by the rules. At the same. time, each 'case had to be judged on Its own merits, keeping in mind the relevant provisions of Article 311(2). One has to keep in mind the sitnation obtaining in Punjab in the year 1993 and must appreciate the orders passed by the SSP in that context. It was natural In· siich a situation that the higher and responsible officers are obliged to resort to the provision contained in clause (b) of the second proviso to Article 311 (2) to dispense with the services of bad elements > without an en11uiry. [929-D-F; 923-E-H]

3Copy pinpoint3. There is no reason not to believe that the power under clause (h) of second proviso to Article 311(2) was invoked by the SSP for proper reasons; The comments made against him by the Tribunal to the effect that he acted casually, is unacceptable besides being uncharitable. The Tribunal was also not justified in saying that the order of dismissal does not say that.A was responsible for intimidating and terrorising the com- plainant and the witnesses. [930-D-F]

f!: 4. The conclusion arrived at by the Tribunal with regard to the case

\/

CHANDIGARH ADMN., UNION TBRRIT0RY v. A. MAN CHANDA {B.P. JEBVAN REDDY, J.} 921

against K needs no interference. No one had ev~r stated either before the A •. • • • ' •: I ~ ~·.

Superintendent of Police (Hqrs.) or before the. Senior Superintendent of Police that the complainant has been terrorised, Intimidated or threaiened .by K. Only because the complainant-Advocate, mentioned in his letter that he does not wish· to proceed with the ~omplaint In vieW iif the compromise effected between the parties, it cann~t.be inferred that the com'plai11ant ha~ 1

be~n terrorised and intimidatet!.: 111 ~uch sltuatio~, the inference drawn a B by the SSP cannot be said to be a.reasonable or reievarit~o~e. Thus there was .absolutely no material tip~n which the SSP could· be satisfied that it was not reasonably practicable to hoid· a dlsciplinary enquiry against the respondent because of the intimidation and threats held out by K to the , • r ·, ,, , "' ' complainant or other witnesses. [930-G·H; 931-A·CJ . - . ' ,: .. i.J • J ,,. ' C Union of1nditi v. Tulsiram Pate([l985]'3 SCC 398; A.K Kaul y; Union of india; [199S] 4 SCC13;'collector of Mongliyr ~; Keshait'Prasad Goenka; [1963] l SCR 98; St~te of Rlijasthan v.'Oliio/i·of llldia, [1977] 3 SCC 592 and ·S.R. Bominai v. Union of India, [1994] 3 SCC l, referred to . . " -.~·; ·, :·" ••. · .... • r ., ·· ··~ .. · 01 D .CIVIL APPELLATE JURISDICTION ;.CiVil Appeal.No. 6954 of 1996 Etc. , ,. . ' · .. ~ . j-' ; ,. · From the Judgment and Order dated .24;8.95 of the .Central Ad- ministrative Tr.ibunal at Chandigarh in 0,A. No. 366 - .CH of 199~. ,., . E ,. ' Ms. Kamini Jaiswal for the Appellants. • · ' . " .! ' •' -·.' . -- • . . .

j:•.r. Rao, R.K. s'harma and Rak~sli"Kumar Sharma for the Respon, '• dents. · '" ' 1 - '· ,J. ;,_ , '·.· ' 1~ ' , .)- T • t • ~- ;

The Judgment of the Court delivered. by F ' • ·i ,,

.parties..B.P. .JEEVAN REDDY; J. Leave: granted. Heard ... counsel for the ., ' ., •J1:' •.

• , '1 . ' .. "\ . •,] .

Clause (2) of Article 311 of the Constitution of India declares .that no person who holds a ciVil post undi;r th~ U;,ion or the Staie "shall be G dismissed or removed or reduced in rank except after an inquiry in which he has been infornied of .the charges against "J . .• ~ t"· 'and given a re~sonabie ' ,. ' ; hi.;, ~ " ' . . opportunity of being heard in respect of those charges": The sec.ond proViso ·to cl~~~e (2), however, specifies tliree situati~ns in which the ;equiiements iii clause (2) do n~t apply. Clinise (b)'. of the second proViiio states that H

\./

p. 922

A "where the authority empowered to dismiss or remove a person or to reduce him in fhnk is satisfied that for some reason, to be recorded by that ' authority in writing, it is not reasonably practicable to hold such an inquiry", the enquiry and the opportunity provided by clause (2) can be dispensed with and puni~hment 'imposed straightaway. Clause (3) of Article 311 is really a contin~ation of clause (b) of the second proviso. Clause (3) says, B "if, in respect of any such person. as aforesaid, a question arises whether it is reason~bly piacticable to hold such ~n inquiry as is referred to in clause (2), the decision thereon of the authority empowered to dismiss or remove such person . . . or to reduce him in rank shall be final." C In Unio1I' of India v. Tulsiram Patel, [1985) 3' SCC 398, it has been held by the Constitution Bench that the second proviso to Article 311 is based on pubfic policy, is conceived in public interest and is to be employed for public gC?od. The Constitution Bench has pointed out that the paramount thi!;g to bear in mind is that the second proviso will apply only where the conduct of the government servant is such that he deserves the punishment of dismissal or removal or reduction in rank. It was further pointed out that once the above test is satisfied and the conditions specified in the relevant clause in the second proviso are satisfied, the said proviso is attracted and it would not be necessary to comply with the requirements specified in clause (2). That was a case where a large number of railway employees had participated in an illegal All-India strike and the Govern- ment had responded by orderi.ng their dismissal en masse. The action was held to be justified in the circumstances. At the same time, it was held that recording of reasons for forming the requisite satisfaction is mandatory. Though it is not necessary that ihose reasons must find a place in the order of punishment, it ·was held, the authority must produce the same when called upon to do so by the Court. The desirabifity of incorporating the said reasons in the order imposing punishment was emphasised. It has been held by this Court in Collector of Monghyr v. Keshav Prasad Goenka, [1963] 1 S.C.R. 98 that where the statute requires the recording of reasons, any action taken without recording the reasons is invalid. Here, of course, the requirement is contained in the constitutional provision itself.

It is trJ~ that clause (3) of Article 311 declares further that when a ·+- question arises whether it is reasonably practicable to hold an inquiry, the decision of the competent authority shall be final on that question. But that doe~ not me~n that the scope of judicial review is excluded altogether. In 7

CHANDIGARH ADMN., UNION 1ERRITORY v. A. MAN CHANDA (B.P. JEEVANREDDY, J.] 923 ., '

., State of Rajasthan v, Union of India, [1977) 3 S.C.C. 592, it was held that cla~se (5) of Article 356 (ini;oduced by Constitution 38th Amendment Act and deleted by the 44th Amendment Act,' which provided that "not- withstanding anything in this Constitution, the satisfaction of the President mentioned in' clause (1) shall be final and conciusive and shall not be questioned in any court on any ground") does not preclude the Court from entertaining the challenge to a notification under Article 356(i) on the ~ giou~d that the requisite satisfaction was formed malafide or that in was founded on extraneous grounds; because' it was' pointed. ou( in either of those cases, there is in lawn~ s1tisfactfon as contemplated by clause .(1) of Article 356. It has b'~eii'held by thiS C~urt in s.R.. Bon;m~i v. Unio11of b;dia: [1994) 3 sec i'th~t even in the matter of exercise ot'powe; ~tider c l Articie 356 ~.of the Co'iistitution, the saiisfactlon of the P;esident, while ~do~btedly . - subfective, . .. .is not. beyond , the judiciai ..,. scrutinyI of.,,,the c~~rts . '· ·~•

under.. Article' 32 or Article 226, as the case may be. The parameters of judicial revi~w enunciated i;, S.R. Bommai have been held. applicable in AX Kaul v.' Vnion of India (1995): 4 S.C.C. 73 to a ;,,att~r arisi~g u~der D proviso (c) to Article 311(2).. A-re.ading of clauses (b) an~.(c) of the second proviso would establish that, if at all, the power. under. clause (b} is more circumscribed tran the power under clause (C).-: 1 .... '}•' ., .. ' . v. ! • \'... t.;

·until receiitly, Punjab was in the thro'es ofa serious ·internal distur- bance. Armed groups has created a sitnation' where the State was obliged E 'to deploy p'olice arid other armed forces in ·substantial number to suppress the 'militancy.' In the very'·nature of the siiuaiion, vast po,,;ers had· to be veted in the police to' deal' with the emergllig situations. and ihey did 'ulti~ately overcome the separatist forces.".fhey had fo pay a substantial price in the'process. A large n,il~ber 'of p?iicemen arid members' of the .F para-military and armed forces paid with their lives. The naticirt feels gratel'.u\ fo~ .their performance ~d remei:idiers the ;acfifices mad~ by' J:hem. •. .'f'· ..~ . . .,~.J. ·' t ,·,· . ' . ~· - • Unfortunately, the transition to.a peace-time situaiion has not proved easy. • • ~ <" :· ''Lf '• .• ' • ' • ~· t , , ; , <' i •

A few among the p9lice. force yet want to lord it over thC c_itiZency. Some of the_m do not hesitate. to indulge in those very acts of ~hich the militants were a~used of, viz., extorti~n, abd~ction a~d worse. ~~s n~tural in such It G '.'sitl)atio~ thaqhe higher an'd ~e~p91,isibl~ officer.~ of,th5' police slio~ld try to curb these excesses: Jn appropriate cases, they are obliged to resort to the pr~'visio~ contained i~ clause .(b) of the second pr~vis;, to Artie!~ 311(2) to dispense with the services of such bad elements without an inquiry. The Chandigarh Administration, appellant in these two appeals, H • . ' · · ,, , ,·''-• ;.. .,., • . I , , ·.. ~· c. /.

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p. 924

A says that acts and deeds of the two respondents herein did call for the exercise of the extraordinary power under proviso (b) to Article 311(2) which it did invoke. It says that the Central administrative Tribunal, Chan- digarh was in error in interdicting its orders dismissing the respondents.

B Ajay Manchanda, respondent in civil appeal (arising from Special Leave Petition (C) No. 26926 of 1995) was a Sub-Inspector of Police attached to Sector-11 Police Station. F.l.R. No. 125 was registered in the said police station on July 31, 1993 under Sections 420/468/471 of the Indian Penal Code concerning issuance/preparation of fake passports. The respondent was associated with the investigation .of the said case. In the course of the investigation, certain persons including one Swaran Singh @ Makhan Singh were arrested and remanded to police custody, Sometime later, Makhan Singh filed a complaint before the higher police officers stating that the respondent took him away from his shop on the evening of December 7, 1993 and placed him in the lock up and that the respondent demanded a sum of Rupees three lakhs to release him and to delete his name from the said case. Because of the pressure exerted by the respon- dent and the threats held out by him, he said, he agreed to pay a sum of Rupees one lakh, out of which Rupees fifty thousand was paid through his brother). He complained that the respondent was pressing for the balance .,._ Rupees fifty thousand. On the basis of the said complaint, the Senior • E Superintendent of Police (S.S.P.) ordered an enquiry to the conducted by Sri S.C. Sagar, Deputy Superintendent of Police (D.S.P.) (Central) :-vho submitted a detailed report on March 11, 1994 affirming the contents of the said complaint. He also reported that the complainant and the wit- nesses were terrorised by the respondent and on that account, they were not prepared to proceed with the complaint or the case further. After F examining the report, the S.S.P. was satisfied that the respondent had extorted Rupees fifty thousand from the said Swaran Singh @ Makhan Singh and that he was further demanding a sum of Rupees fifty thousand and that he had also threatened and intimidated Makhan Singh and the . witnesses with dire consequences. He was satisfied that the witnesses were so terrorised th~t they expressed their inability to pursue the matter. On G the above basis; he held that it was not reasonably practicable to hold an inquiry against 'ihe respondent and accordingly dismissed him invoking the power under Article 311(2)(b). The relevant portion of the order reads t thus:

H "Makhan Singh @ S.waran Singh made a complaint which was

y CHANDIGARH ADMN., UNION TERRITORYv. A. MAN CHANDA {B.P. JEEVAN REDDY, J.J 925

marked to Sh. S.C. Sagar DSP/Central, who submitted detailed report dated 11.3.94 whereby he found truth in the allegations of •Makhan Singh @ Swaran Singh against S.L Ajay Manchanda. SJ. Ajay Manchanda has extorted Rs. 50,000 and was further demand- ing Rs. 50;000 more from the accused. He threatened the accused to such an extent that the .accnsed and the witnesses refused to make any statement before DSP. S.C .. Sagar.

Shri S.C. . . Sagar, ... DSP ha~· reported - . that the- .witnesses ' .. - are so { . te.rr9rised by th~ t)lreats o~. S.I. Ajay Manchanda that they have . expressed their inability to pursue the matter in the court of law j or in any other enqui~y against him and more so they refused to c , make a11y statem~nt b~fore hi;,,. · · ' , ·' ·•

Whereas after going through.the report of DSP s.c.' Sagar, the I . ' • ' ·I " . - ,, complaint of Makhan Singh@ Swaran Singh and my.oral examina- tion' of Makhan Singh @ SWaran Smgh, it has bee,;_ ·proved to my , sub}ective' s'atisfaction that s.i.':Aj~y Manchanda has ertorted Rs. D ' .... , ~ ~ 50,000 • " f~om' . ac~u~ed . . ·, •. Makhan Singh'@' s*aran Singh' and he wa~ . . .. . , ,_.', ': . , ,. . r . . • • further demanding Rs. 50,000 ·more and he threatened him with ''-~ ~; •• ··- ~~ 1.1. ' ., '°'.>'" '·-~ ' .• ' ..• dire conseqilences and the witnesses are so terrorised. that they ·~ ~ ' ', " •. M '• •, p od ' ; • > ''' ' ~ expressed tlieir in.ability tci pmsue the matter. ... . . I . I: .. , . ..,., t ~ ' . ~- ' The.Judicial prcisecutioi'ds'riot otdered in the case. The regular E departmental enquiry is also not reasonably practicable in view of threats and ·witnesses in~bility to 'come. forward to depose against , th6 delinquent official due to threats of elimi~ation:· Tb~refore, I . dispense .with rei>ular:department'al enquiry' in· exercise' of power . . vested in' me under A!ticl~ 311(Zj (B)' o.f the Co,;.stitutio~·oflndia." F ,'!: -')!"''" ' . ' .: " ¥ !' . : _. ;.,_.. . - ~ . . . . •. ,

The respondent challenged the order of dismissal before the Central Administrative Tribunal, Chandigarh. The Tribunal f~und that the im- pug;,elo~der does '~ot. state that th; respondent' had'given any threats to any of the iitnesse; or the' coillplainant and that in fact th~re is no ~eference 'to ·the act ~f te!rorising by the respondent. The Tribun'al opined G that merely because 'a police office~ is the accused, it ii.l.rtnoi be presumed that no one will come forward to depose against him: it observed that the Senior' Superintendent .• . ' - • of Police i- ·' ' "has . . taken the • ,. matter in .a very casual 1

manner without giving due 9onsideration .:ai;id, applying his di.spassionate discretion in the issuance of the impugned order and coming to the H

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p. 926

A conclusion .to dispense with the regular enquiry." Kuldip Singh, respondent in civil appeal (arising from Special Leave Petition (C) 26970 of 1995) was also a Sub-Inspector of Police under the Chandigarh Administration. One Sri K.B. Raheja, Advocate, Ferozepur complained to the S.S.P., Chandigarh that the respondent extorted an amount of Rupees nine hundred from him on the pretext of a minor traffic violation while he was driving his car on the wrong side near cricket stadium on March 9, 1993. An enquiry was ordered into the said complaint to be conducted by Sri Arvind Deep, SP (Headquarters). The said officer reported that the resp.ondent has "committed gross misuse of his official position and extorted money from an innocent victim Sri Kulbhushan Raheja as a fine for violation of traffic regulation but he misappropriated a major part of the amount to himself and misbehaved with him and also impounded the car". He reported that while the respondent collected Rupees nine hund.red from Sri Raheja, he issued a receipt to him only for Rupees four hundred and remitted only a sum of Rupees one hundred into the Government account. He reported that while in the receipt issued to the said advocate,' the amount collected from him was mentioned as rupees four hundred both in words and figures, the counterfoil of the said receipt contained only a.Jigure of Rupees one hundred in figures. It is significant to notice that the's.P. (Headquarters) did not report ihat the respondent had either terrorised the complainant or the witnesses, if any. On this report, the S.S.P. made the following endorsement on 29th March, 1993 :

"Enough-and sufficient indications that witness is being pressurised and compelled to withdraw his statement. In fact his reluctance to appear before me is clear vide his letter dated 25.3.93. His mention ofa compromise in his letter dated 28.3.93 are clear indications of no chance of free deposition by the witness in the enquiry.

The obvious fact is that witness has been won over under the threat of injury to his person an,d property and threat may be to the extent of elimination of the witness, the delinquent official being in ,uniform. The fact fmding enquiry conducted by SP/HQ found truth in the allegation in the complaint regarding misap- propriation of money. ; · + The judicial prosecution is not ordered in the case. The regular departmental enquiry is also not reasonably practicable in view of

y \ ,_

- -i CHANDIGARH ADMN., UNION TERRITORYv. A. MAN CHANDA jB.P. JEEVAN REDDY, J.]

the letter of the 'complainant. Therefore, I dispe;,se with ~egular depar\mel'tal enquiry in exercise_ of power vested in me under .. Article 311(2)(B)." - 927

. ·I ' . " •

On the sam~ day, i.e., 29th March, 1993, the S.S.P. passed an o;der dismiising the respondent from service -resorting to proviso (b) to Article ·311(2)- Before proceeding- further, it is necessary notice a few facts for to a proper appreciation of the aforesaid endorse,;..ent made by the S.S.P. ori -29th March, 1993. It appears that after receiving the enquiry. report of the S.P. (Headquarters) on 22nd.March, 1993, the S.S.P. sent a message to Sri Raheja, Advocate 'to come and meet him in connection with his complaint. bn Zsth Ma~ch, 1993, Sri Raheja Wrote to the'S.S.P. ihat on'account of his C ... I ··' · I ' • . · - · engagements in the sessions ccmrts, he would_ not be able to meet the S.S.P. 'in his office -on 26th March, 1993 and that he may be called on some other a day,. preferably Saturday or Sunday. It app'ears that he was called again in. response' to· whi~h Sri Raheja addressed . another Jette~ (dated 28th ·March, 1993) thaf since a compromise has been effected between him and the respondent by respectable persons; he does not wish to pursue the compl;.mt ag~inst the respondeni. lt is from_ ihis second letter that the · s.s:i>. se~;;;s to have inferred and concluded thatthe ·advocate was being terrorls~d by the respondent and has been won over by hoiding out threats. 'oii'that ba~is, h~ concliided. that ii was noi reasonably practicable to hold an enqiliry ag~i~st th~ redPOncient.- . ; ·'I ... . • ' .. ; - . ' . . r.' ., . ' . . I '

.. ' .. - ' . _·. . . . . _, .· ··~·_,; .. .. - .·". _

' When the matter_ went before _tlie Central Administrative Tribunal, Chandigarh, . it : aliow~d .the original applic'ation filed by· the _respondent holding that there 'was no material before ih~ s.s.r: ~ri thebasis of which _he could have ·been_ ieasoriably satisfied tha(it was not reas~nably prac- F tic~ble to hold ~ disciplinary eiiquiry against- the respondciit. The Tribunal noieci that the complainant is not an ordinary person but an advocate practising in the sessions courts and_ that there was ·no basis_ upon which the S.S.P. could have arrived at· the ,conclusion that the sa'id ~dvocate was • · won over by' threats -o~ thai he was beillg' terrorised or t1iat. h.e was afraid d "or being '.eli~inaied' by the responde~t. . ' . .. - :· ' .. ' . . . 1tf"1

.. - •• , - • f ";_. .,_ .• '' -,, .. .. , ' ,· . ' • ' j

. , _ Ms: Kamirii J aiswal, .learned COUl)Sel for th~ appellant, assaHed _the reasoning and conclusion of the Tribnrial in .both the matters whereas S/Sri P J>. Rao and D.V. Sehgal, appea'ring for the respondents respectively H

v

p. 928

A supported the reasoning and conclusion of the Tribunal. .. We shall first take up the case against Ajay Manchanda. It was December, 1993. The complainant Swaran Singh @ Makhan Singh was one of the persons named as accused in the F.I.R. He was arrested. Admittedly, the respondent was one of the officers investigating the said case. Swaran B Singh complained to the S.S.P. of extortion and the continuing harassment by the respondent. The S.S.P. ordered an enquiry through D.S.P. who reported that the complaint is true. The D.S.P. reported expressly that the complainant and other witnesses "are so terrorised by the threats given by SI Ajai Manchanda that they have expressed their inability to pursue the matter in the court of law or in any other enquiry against him. They are so terrorised that they have even explained their inability to make any formal statement before me. Keeping in· view the above circumstances when complainant and other witnesses are so terrorised and panic-striken that they are not Willing to come forward the departmental enquiry shall also not serve any purpose." On the basis of the said report, the S.S.P. was satisfied that it was "not reasonably practicable in view of threats and witnesses' inability to come forward to depose against the delinquent officer due to threats,,of elilnination" and accordingly passed the order of dismissal. On the basis ·of the material placed before us - we have also perused the original record which war placed before us by Ms. Karnini Jaiswal pursuant to o~r direction - it is not possible for us to say that there were no reasonable grounds or relevant material before the S.S.P. for being satisfied that in the circumstances and the situation then obtaining, it was not reasonably practicable to hold a disciplinary enquiry against .the respondent. No one would come forward to depose. The requirement of recording of reasons is also satisfied in this case. Indeed, the dismissed order itself incorporates the reasons. We have also looked into the report of the D.S.P. and the relevant record.

Sri P.P. Rao, learned counsel for the respondent, submitted that there was no relevant material on the basis of which the S.S.P. could form the requisite satisfaction. He submitted that only a minor penalty has been imposed upon the Station House Officer. Inspector Jagbir Singh who too is alleged to have extorted a sum of Rupees fifteen thousand from the said complainant as against· his demand for Rupees thirty thou;and. The .H learned counsel complained that the respondent is being made the

CHANDIGARH ADMN.. UNION TERRITORYv. A MAN CHANDA [B.P. JEEVAN REDDY, J.J 929 . ' ' .

scapegoat for the wrong done by his superiors and that the action taken A against him is not.bonafide.Counsel further submitted that the D.S.P. who conduct~d the' preliminary enquiry and submitted the report was himself involved in the alleged extortion. This the learned counsel says, is estab- lished from the statement of Sri Swaran ·Singh @ Makhan Singh wherein he had stated 'after some days' Deputy Superintendent of Police Subhash B Sagar himself called us and told Ajay Manchanda and Jagbir Singh that my r~mand will have to be extended by two more days. On that, Ajay Manchanda and Jagbir ,Singh in a satirical note said that "Makhan to makhan laga chuke hai" (in other words, ~~ney has aire'ady been taken from him)." From this statement, Sri P.P. Rao seeks io infer that D.S.P. Subhash Sagar (who had conducted the enquiry against the respondent and submitted. the enquiry report) w~ in the know of and was a party to tlie , , ' . ,entire episode, and, therefore, could not have peen appointed as the enquiry officer against the respondent. He was in the nature of a witness, it is ~ont~nded. Learned counsel further submitted that if'the complainant _;,as so terrorised, h~ would not have gone to the S.S.P. complaining of harassmenl in writing 'nor would he have deposed before the D.S.P. (en- quiry officer). The said facts, learned counsel submitted, negatived the plea · of terrorising or intimidation. The learned counsel finally submitted that in .such matters the courts/t.ribuil~ls are the.'only protection for the pers~ns proceeded against and that unless sirict standards are adopted for judging the "satisfaction", th~ g~veniment offici;us will have no protectibn against the . arbiirary , . 1 acts .;· _ and orders of · th~" .superior· Iofficers _ who may- succumb to the temptation . . ~ of adopting the easier ·' ' course . of dis111issing/removing/reduc- ing in rank the'lower officers without holding an enquiry instead of follow- ing ihe regular proced~res prescribed by the rules. ' . ... ' .... . . ' F We agree with and share the concern of the learned counsel con- tained in his last sub;.,;ssion. At the same time, we have to judge each case on its 0 wn merits, keeping in mind the relevant provisions of Article 311(2) . and the interpretation,placed upon it by this Court in Tulsiram Patel. We must say immediately that tlie learned counsel is not rightin inferring from the state~ent of the, complainant ~xtracted hereinabove that the D.S,P. G (en'.J.irirY officer) was also a part}> to the extortion. The statem~nt extract~d hereinabove does not establish that the said w~rds were addressed to' or were meant for the benefit of the D.s.P: Moreover, the words "Makhan ko makhan laga chuke hai" do nqt ;.,ean what th~ complainant thought they meant So far as the allegation against Jagbif' Si~gh is co~cerned; it is H . ' ' , , ' ·.,, ·'

930 SUPREME COURT REPORTS [19%] 3 S.C.R.

A equally unacceptable. Ms. Kamini Jaiswal has produced the file relating to the proceedings taken against Jagbir Singh which we have perused. The charge against Jagbir Singh was not one of extortion from the complainant or anyone else, but one of laxity and negligence in carrying out the investigation. May be that th~ complainant had made an allegation against B Jagbir Singh but there is no reference to it in the D.S.P. (enquiry officer's) report and we do not know the circumstances in which Jagbir Singh was not proceeded against for extortion. This plea was not raised by the respondent before the Tribunal. It has been raised for the first time before us. Since the allegation is factual in nature, we are not inclined to entertain the same at this stage. In any event, as stated above, we have perused the file concerning Jagbir Singh also, and are satisfied that the charge against Jagbir Singh was altogether different. We are, therefore, unable. to agree with Sri P.P. Rao that there was no material upon which the S.S.P. could be satisfied that it is not reasonably practicable to hold a disciplinary enquiry against the respondent. One has to keep in mind the situation obtaining in Punjab in the year 1993 and must appreciate the orders passed by the S.S.P. in that context. We see no reason not to believe that the aforesaid power under clause (b) was invoked by the S.S.P. for proper reasons. The comments made against him by the Tribunal to the effect that he acted casually is unacceptable besides being uncharitable. The Tribunal was also not j~~tified in saying that the order of dismissal does not say that the respondent was responsible for intimidating and terrorising the com- plainant and the witnesses. It was an hyper-technical objection. The order read as a whole and the accompanying report of the D.S.P. and the endorsement of S.S.P. on the report do clearly establish that it was respon- dent who was intimidating and Oterrorising the said persons. The judgment and order of the Tribunal in O.A. 366-Ch/94 is accordingly set aside and the appeal arising from Special Leave Petition (C) 26926 of 1995 is allowed.

No costs.

Now, coming to the case against kuldip Singh, we are of the opinion that the conclusion. arrived at by the Tribunal in this matter needs no interference at our hands. We have pointed out hereinabove while discuss- + -ing the facts ~f this case that no one had ever stated either before the S.P. (Headquarters) (preliminary enquiry officer) or before the S.S.P. that he has b.een terrorised, intimated or threatened by the· respondent. Only H because the complainant Sri Raheja, Advocate, mentioned in his letter that

y CJ-:IANDIGARHADMN., UNION TERRITORYv. A. MAN CHANDA [B.P. JEEVANREDDY. J.j 931

he does not wish to proceed with 'the 'compfaint i~ vie;.:, of the compromise A effected between him and the respondent by certain respectable elders, the S.S.P. inferred that the"said complainant has been terrorised and in- tirni.dated, We· a.re not satisfied that that is only inference that flows from the c.omplainant's second letter. The 's.S.P.c also docs not say either in the order· of dismissal - or. anywhere in the record - th;it he ha.d information . , , .~,"· ''"' . ·n • ,... • . B -

to the above effect from some other . source. In such a· situation, the inference drawn by the.S.S.P. c~fil{(,1 be said to be'~ reasonable or relevant one. In short, there was absolutely no material upon wh.ich, the ~.S.. P. could be satisfied that it was not reasonably practicable to hold a disciplinary enquiry against the respondent because of .the i.ntimidation and threats held O\ll by the n;spondent to t.he complainant or other witnesses, if any. C Accordingly.the appeal arising from Sp~cial leave Petition (CJ 26970 of 1995 is dismissed: ·

• No costs. . ' . ' T.N.A. Appeal disposed of:

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