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Rajasthan High Court - Jodhpur

Lrs Of B.D. Saraswat vs The State Of Rajasthan on 3 November, 2025

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      HIGH COURT OF JUDICATURE FOR RAJASTHAN AT
                       JODHPUR

              D.B. Civil Writ Petition No. 9906/2010


Legal Representatives of late Shri B.D.Saraswat (dead) S/o Shri
Tikam Chand Saraswat, resident of 8/7, Jai Narayan Vyas
Colony, Behind Police Station, Bikaner:

1.      Shri Amit Saraswat S/o Late Shri B.D. Saraswat, Aged
        About 47 Years,
2.      Miss Madhu Saraswat D/o Late Shri B.D. Saraswat, Aged
        about 38 years,


        All L/Rs resident of 8/7, Jai Narayan Vyas Colony, Behind
        Police Station, Bikaner.
                                                                     ----Petitioners
                                         Versus
 1.    The State of Rajasthan through the Secretary, Department
       of     Personnel,         Government             of      Rajasthan,   Jaipur
       (Rajasthan).
 2.    The High Court of Judicature for Rajasthan at Jodhpur
       through its Registrar.
                                                                    ----Respondent


 For Petitioner(s)           :      Mr. M.S.Singhvi, Sr. Adv. Assisted by
                                    Mr. Hemant Dutt, Adv.
                                    Mr. Abhishek Mehta, Adv.
                                    Mr. Chirag Kalani, Adv.
 For Respondent(s)           :      Mr. G.R.Punia, Sr. Adv. Assisted by
                                    Mr. Sanjay Rewar, Adv.
                                    Mr. Rajesh Panwar, Sr. Adv.-cum AAG
                                    assisted by Mr. Ravindra Puri Goswami,
                                    AGC & Mr. Rajesh Punia, Adv.


            HON'BLE MR. JUSTICE MUNNURI LAXMAN
               HON'BLE MR. JUSTICE BIPIN GUPTA

                                   Judgment

Judgment Reserved on                 :     08/08/2025
Judgment Pronounced on :                   03/11/2025


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[Per Hon'ble Mr. Justice Munnuri Laxman] :

1)       The present writ petition assails the report of the Enquiry

Officer dated 06.03.2009, the resolutions of the Full Court dated

01.07.2009 and 02.02.2010, and the order of the His Excellency

the Governor dated 08.04.2010 and to set aside such proceeding

and consequently, seeks reinstatement in service with all

consequential benefits.

2)       The delinquent officer/petitioner died on 26.05.2012

during the pendency of the proceedings, and his wife and

children were brought on record. Subsequently, the wife also died

during the pendency of the present proceedings, and the

petitioner is now represented by their children.

3)       The background of the facts discloses that the petitioner

was appointed as a District Judge (entry level) through direct

recruitment and subsequently, promoted to selection grade.

While serving as a Special Judge in the Special Court under the

N.D.P.S. Act at Pratapgarh, a complaint was lodged against him

by Ashok Kumar Vaishnav, an Advocate (complainant). He

alleged that the petitioner had rejected the bail applications filed

by him of the accused, Paras S/o Amba Lal, in FIR No. 442/2004,

Police Station Pratapgarh, vide orders dated 06.10.2004 and

02.12.2004. However, a subsequent bail application filed by Ms.

Kala Arya, Advocate, after the dismissal of the earlier applications

filed by Ashok Kumar Vaishnav, was allowed with an alleged

oblique motive or for extraneous considerations. It was further

alleged that such relief was granted despite an order passed by

the High Court in S.B. Criminal Misc. Bail Application No.

3844/2004, wherein the counsel appearing for the accused-Paras

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had sought leave to withdraw the bail application with liberty to

file a fresh one after the challan was submitted but changed

advocate filed bail application before filing of challan.

4)       Acting upon the complaint of PW-2 Ashok Kumar

Vaishnav, the Hon'ble Chief Justice appointed Justice Shri N.P.

Gupta as Enquiry Officer to initiate disciplinary proceedings

against the petitioner under Rule 16 of the Rajasthan Civil

Services    (Classification,        Control        &     Appeal)    Rules,   1958

(hereinafter referred to as "the CCA Rules, 1958"), by order

dated 01.09.2005. The Enquiry Officer issued the following

Statement of Charge and Statement of Allegation in support of

the charge, which read as under:


                             STATEMENT OF CHARGE

            "That you, Mr. B.D. Sarswat while posted and
            functioning as Judge, Special Court, N.D.P.S,
            cases, Pratapgarh, District. Chittorgarh, N.D.P.S.
            cases, Pratapgarh. District, Chittorgarh granted
            bail on 24-02-2005 to Paras S/o Amba Lal,
            resident of Sakariya, P.S. Rathanjana in Cr. Misc.
            Case No. 20/05, relating to FIR No.442/2004 or
            P.S Pratapgarh, moved on behalf of accused
            applicant Paras by Advocate Ms kala Arya, with
            oblique    motives/   externeous     considerations
            whereas earlier application of this accused Paras
            was rejected by you, in respect of this FIR on 06-
            10-2004 (Cr. Case No. 133/04) and 02-12-2004
            (Cr. Case No. 166/04). when they were presented
            by Advocate Mr Ashok Kumar Vaishnav: despite
            fact that SB Cr. Misc. Bail Applilcation No.
            3844/04, moved by aforesaid accused applicant
            Paras was dismissed by Hon'ble High Court, on the
            ground that it was not pressed by counsel for the
            accused, with liberty to file fresh bail application
            after the challan. Since no challan was filled on
            24-02-2005, when you granted the bail to Paras,
            on changing of Advocate. Aforesaid grant of bail
            reflects to be out come of oblique motive/
            externeous considerations on your part and
            amounts to gross misconduct, punishable under
            rule 16 of the CCA Rules,1958."


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                            xxx               xxx                   xxx

            STATEMENT             OF        ALLEGATION              REGARDING
            CHARGE:

            "While you posted and functioning as Judge,
            Special Court. N.D.P.S, Cases, Pratapgarh Distt.
            Chittorgarh the first bail application No. 133/04
            for the accused Paras in relation to FIR No.
            442/2004 of P.S. Pratapgarh Distt. Chittorgarh
            was filed on      05-10-2004 by advocate Mr Ashok
            Kumar Vaishnav, which was rejected by you on
            06.10.2004, accused filed bail application in
            Hon'ble High Court. Jodhpur bearing S.B Cr. Misc.
            Bail Application No. 3844/04 which was rejected
            on 23.11.2004. The second bail application,
            presented by advocate Mr Ashok Kumar Vaishnav
            in your court was also rejected by you on 02-12-
            2004. After dismissal of the bail application by
            Hon'ble High Court. Being withdrawn with liberty
            to file fresh after filing of challan: when presented
            for the third time before you by advocate for the
            third time before you by advocate Ms Kala Arya
            you granted bail on 24-02-2005 to accused Paras
            in the said case. In the order of granting bail
            application, you have not made any reference of
            rejection of earlier bail applications, order of
            Hon'ble High Court and if there was any change of
            circumstances after rejection of first and second
            bail applications nor challan was filed on 24-02-
            2005, as observed by Hon'ble High Court. Thus,
            you granted bail to aforesaid accused Paras in
            relation to FIR No.-442/2004 P.S. Pratapgarh,
            upon change of advocate, with oblique motives/
            externeous considerations and committed gross
            misconduct punishment u/s 16 of the CCA Rules,
            1958."


5)       The petitioner submitted his explanation to the charge on

05.12.2005. The Enquiry Authority, not being satisfied with the

explanation, proceeded to conduct an enquiry in accordance with

due procedure. To support its case, the Department relied on the

evidence of PW-1, Dwarka Nath Sharma, the then Public

Prosecutor of the Court where the delinquent officer was posted,

and PW-2, Ashok Kumar Vaishnav, Advocate (the complainant).

The Department also relied upon documentary evidence marked


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as Exhibits A/1 to A/8. Additional documents filed by the

Department were also taken on record, having been duly

admitted. In support of his case, the petitioner (the delinquent

officer) examined himself as a witness and relied upon the

documents filed at various stages, including bail orders dated

05.09.2005 passed by him in Criminal Bail Application Nos.

104/2005 and 105/2005.

6)        After the closure of evidence by both parties and upon

hearing them, the Enquiry Officer submitted his report dated

06.03.2009,     holding       that     the     charge       levelled     against     the

delinquent officer/petitioner was proved. The report concluded

that the orders granting bail to the accused, Paras, upon the

change of advocate, clearly amounted to passing orders with an

oblique    motive   and       for     extraneous         consideration,          thereby

petitioner passed order in favour of changed advocate and

disfavoured the earlier advocate, i.e., PW-2 Ashok Kumar

Vaishnav.

7)        The Enquiry Officer's report was placed before the Full

Court on 01.07.2009. The Full Court took cognizance of the

report and directed that a copy of the same be furnished to the

delinquent officer, and sought his explanation in response

thereto. However, it appears that the petitioner/delinquent failed

to submit any explanation before the Full Court which took

further     decision.     Consequently,            by     its       resolution    dated

02.02.2010, the Full Court treated the matter as one of 'No

Explanation to the Enquiry Report' and unanimously decided to

accept the report and impose the punishment of dismissal. The

Full Court accordingly recommended that the State Government


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pass appropriate orders dismissing the petitioner from service.

Acting on this recommendation, the State Government, by order

dated   08.04.2010,         dismissed        the     petitioner     from   service.

Challenging the same, the present writ petition has been filed.

8)       Heard the learned counsel for both the sides.

9)       Mr. M.S. Singhvi, the learned Senior Counsel appearing

for the petitioner has contended that the petitioner submitted his

reply/explanation to the enquiry report on 05.02.2010, as

directed by the Full Court. However, this reply was submitted

after the Full Court had already recommended the petitioner's

dismissal to the State Government by its resolution dated

02.02.2010. While passing the dismissal order on 08.04.2010,

His Excellency the Governor did not consider the petitioner's

reply/explanation to the enquiry report. As a result, the dismissal

order passed by the Governor is liable to be treated as a non-

speaking order.

10)      The learned Senior Counsel appearing for the petitioner

also submitted that the Appointing Authority (His Excellency the

Governor) did not afford the petitioner any opportunity of hearing

before passing the order dated 08.04.2010. Such an opportunity

was required to be given, as both the enquiry report and the

recommendation of the Full Court were based on adverse

material. Had the petitioner been given an opportunity of

hearing, he could have explained his position with respect to the

adverse findings of the enquiry report and the recommendation

of the Full Court. The failure to provide such an opportunity

resulted in a violation of the principles of natural justice.




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11)      The learned Senior Counsel also submitted that there is

no material on record to show that the Full Court recorded any

findings while accepting the enquiry report submitted by the

Enquiry Judge. Such action is in violation of the procedure

prescribed under Rule 16(10) of the CCA Rules, 1958. Recording

of findings by the Full Court was necessary, as the enquiry report

was not binding upon it.

12)      The learned Senior Counsel also submitted that the

findings recorded by the Enquiry Officer suffer from illegality due

to breach of the principles of natural justice, as additional

evidence was casually admitted without any relevance to the

charge. This procedure caused serious prejudice to the petitioner,

and these irrelevant documents were improperly made basis of

the conclusions. It is also his submission that the findings

recorded by the Enquiry Officer suffer from ex facie perversity

and error, as the entire evidence if considered does not establish

that the orders         were      passed       with an         oblique   motive    or

extraneous consideration. In the absence of any evidence, either

from the departmental witnesses or the delinquent officer, the

Enquiry Officer recorded findings that the grant of bail on the

third application, filed by the changed advocate, was the result of

extraneous considerations and oblique motives. Such findings are

wholly unsupported by evidence.

13)      The learned Senior Counsel appearing for the petitioner

also contended that the scope of the enquiry was expanded

beyond the original charges, and additional documents related to

this expanded scope were used to conclude that the orders were

passed with extraneous consideration and oblique motive. The


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Enquiry Officer failed to properly appreciate the petitioner's

defence, wherein he categorically explained the justification for

passing the bail order.

14)       The learned Senior Counsel further contended that the

resolution of the Full Court in accepting the enquiry report and in

recommending dismissal suffers from violation of the principles of

natural    justice.     Furthermore,            the      Full       Court    erred    in

recommending the extreme punishment of dismissal, considering

the nature of the allegations and the evidence on record.

Moreover, the disciplinary proceedings are liable to be quashed

on the ground that the order granting statutory bail to the

accused, Paras, was in accordance with the statutory provisions

as well as the law laid down by the Apex Court .

15)       Per contra, Mr. Rajesh Panwar, Senior Advocate-cum-AAG

appearing for the State and Mr. G.R.Punia, Senior Counsel

appearing     for     the   Department             have     submitted         that   the

Appointing Authority, i.e., His Excellency the Governor, is not

required to provide an opportunity of hearing while imposing the

punishment of dismissal. However, an opportunity of hearing is

required before accepting the findings of the enquiry report. In

the present case, the petitioner failed to avail such opportunity

which was given to him before the Full Court which subsequently

accepted the enquiry report and recommended his dismissal. The

petitioner submitted explanation to the enquiry report only after

enquiry report was accepted and recommendation was made of

dismissal. Therefore, it cannot be said that the order passed by

His Excellency the Governor suffers from non-speaking order and

passed in violation of principles of natural justice.


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16)      The    learned        Senior        Counsel         appearing      for   the

respondents also submitted that after receiving the enquiry

report, the Full Court afforded the petitioner an opportunity to

submit his remarks to the findings of the Enquiry Officer. The

petitioner failed to utilize this opportunity, and the Full Court's

recommendation was made in the context of non-response from

petitioner. Therefore, the recommendation of the Full Court do

not suffer from any violation of the principles of natural justice.

17)      The learned Senior Counsels also submitted that while

accepting the enquiry report, the Full Court is not required to

provide any special reasons for its acceptance for reasons that

such decision has been taken by constitutional body in exercise

of administrative functions. Therefore, the procedure adopted by

the Full Court in accepting the enquiry report and recommending

the imposition of the punishment of dismissal cannot be said to

be in violation of any statutory rule.

18)      The    learned        Senior       Counsels         appearing      for   the

respondents also contended that the enquiry report and its

findings are based on valuable evidence on record. The Enquiry

Officer, in accordance with the existing rules, afforded an

opportunity to file additional documents and allowed both parties

to produce new evidence. Permitting the Department to submit

additional evidence at various stages does not constitute a

procedural error warranting interference by this Court.

19)      The    learned        Senior       Counsels         appearing      for   the

respondents also submitted that there is ample evidence on

record    to    show        that      the       petitioner/delinquent         officer

demonstrated discriminatory conduct towards the complainant by


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disfavouring him and favored the selective advocates. Such

conduct        itself     demonstrates          the     existence         of    extraneous

consideration and oblique motive. The findings of the Enquiry

Officer are supported by the evidence, and he did not enlarge the

scope     of     the      enquiry.     The      additional        material       was     only

corroborative in nature and cannot be said to be beyond the

scope of the enquiry.

20)        Lastly, it is contended by the learned Senior Counsels

appearing for the respondents that the Enquiry Officer has

thoroughly considered the defence put forth by the petitioner to

justify    the     bail    orders      passed         by     him.       The    Full   Court's

recommendation for the punishment of dismissal does not suffer

from      any     violation       of    the     principles        of     natural      justice.

Furthermore, the recommendation for dismissal cannot be

regarded as disproportionate to the evidence on record as the

bail   orders       were      found       to    be     the     result     of    extraneous

considerations, and they were rightly taken into account. The

orders passed by the respondents required no interference by

this Court.

21)        We have considered the arguments advanced by both the

parties and carefully perused the material available on record.

22)        In the present case, the specific charge against the

petitioner was that the delinquent officer showed favoritism to

the advocate who filed the third bail application by granting bail,

whereas bail applications filed by the complainant/advocate for

the same accused were dismissed. Accused, Paras, was an

accused in FIR No. 442/2004 of Police Station Pratapgarh. The

FIR pertained to offences under Section 8 read with Section 18 of


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the N.D.P.S. Act, involving the seizure of 1.5 kilograms of opium.

Moreover, by the time bail was granted to Paras, he had been in

custody for 157 days, and no charge-sheet had been filed on the

date the statutory bail was granted.

23)      In this regard, it is relevant to refer to Section 8 and 18

of the N.D.P.S. Act, which read hereunder:-

            "8. Prohibition of certain operations.--No person
            shall--
             (a) cultivate any coca plant or gather any portion of
                  coca plant; or
             (b) cultivate the opium poppy or any cannabis plant;
                  or
             (c) produce, manufacture, possess, sell, purchase,
                  transport, warehouse, use, consume, import
                  inter-State, export inter-State, import into
                  India, export from India or tranship any narcotic
                  drug or psychotropic substance,except for
                  medical or scientific purposes and in the manner
                  and to the extent provided by the provisions of
                  this Act or the rules or orders made thereunder
                  and in a case where any such provision,
                  imposes any requirement by way of licence,
                  permit or authorisation also in accordance with
                  the terms and conditions of such licence, permit
                  or authorisation:Provided that, and subject to
                  the other provisions of this Act and the rules
                  made thereunder, the prohibition against the
                  cultivation of the cannabis plant for the
                  production of ganja or the production,
                  possession, use, consumption, purchase, sale,
                  transport, warehousing, import inter-State and
                  export inter-State of ganja for any purpose
                  other than medical and scientific purpose shall
                  take effect only from the date which the Central
                  Government may, by notification in the Official
                  Gazette, specify in this behalf:Provided further
                  that nothing in this section shall apply to the
                  export of poppy straw for decorative purposes."
                           xxx                       xxx            xxx

            "18. Punishment for contravention in relation to
            opium    poppy      and    opium.--      Whoever,    in
            contravention of any provision of this Act or any rule
            or order made or condition of licence granted
            thereunder, cultivates the opium poppy or produces,
            manufactures, possesses, sells, purchases, transports,



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              imports inter-State, exports inter-State or uses opium
              shall be punishable,--
               (a) where the contravention involves small quantity,
                   with rigorous imprisonment for a term which
                   may extend to one year, or with fine which may
                   extend to ten thousand rupees, or with both;
               (b) where the contravention involves commercial
                   quantity, with rigorous imprisonment for a term
                   which shall not be less than ten years but which
                   may extend to twenty years and shall also be
                   liable to fine which shall not be less than one
                   lakh rupees which may extend to two lakh
                   rupees:
                         Provided that the court may, for reasons to
                   be recorded in the judgment, impose a fine
                   exceeding two lakh rupees;
              (c) in any other case, with rigorous imprisonment
                    which may extend to ten years and with fine
                    which may extend to one lakh rupees."


24)       It is also relevant to refer to a Central Government

Notification specifying 'small quantity' and 'commercial quantity',

more particularly the narcotic drugs and psychotropic substance

of Opium referred at Serial No. 92 of the Notification, which

reads hereunder:-


Sl.    Name of Narcotic Drug & Other non-       Chemical Small Quantity Commercial
No.    Psychotropic Substance  proprietary      Name     (in gm.        Quantity (in
       [International non-     name                                     gm./kg.)
       proprietary name (INN)]
(1)              (2)                  (3)           (4)              (5)            (6)
92.            Opium                             And any            25 gm.        2.5 kg.
                                                 preparati
                                                    on
                                                  contain
                                                  opium



24.1      From reading of Section 8 of the NDPS Act, it is clear

that possession of opium is prohibited, and Section 18 of the

N.D.P.S. Act prescribes three categories of punishment: for small

quantity, for intermediary quantity and for commercial quantity.

The quantity of opium recovered in this case falls within the


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intermediary category, being neither small nor commercial

quantity. Therefore, the punishment applicable under Section

18(c) is rigorous imprisonment, which may extend up to 10

years, along with a fine that may extend up to Rs.1 lakh.

25)      Section 36-A(4) of N.D.P.S. Act is also relevant to

mention here, which reads hereunder:-
            "Section 36A(4) In respect of persons accused of
            an offence punishable under section 19 or section
            24 or section 27A or for offences involving
            commercial quantity the references in sub-section
            (2) of section 167 of the Code of Criminal
            Procedure, 1973 (2 of 1974), thereof to "ninety
            days", where they occur, shall be construed as
            reference    to    "one   hundred    and    eighty
            days":Provided that, if it is not possible to
            complete the investigation within the said period
            of one hundred and eighty days, the Special Court
            may extend the said period up to one year on the
            report of the Public Prosecutor indicating the
            progress of the investigation and the specific
            reasons for the detention of the accused beyond
            the said period of one hundred and eighty days."

25.1     From reading of the above provision, it is clear that if an

accused is charged with an offence under Section 19, Section 24,

Section 27-A, or any offence involving commercial quantity, the

period of custody permitted under Section 167(2) of the Cr.P.C.,

which is normally 90 days, shall be extended to 180 days. If the

investigation cannot be completed within 180 days, the Special

Court may, upon receiving a report from the Public Prosecutor

indicating the progress of the investigation and reasons for

detention beyond 180 days, extend the custody period up to one

year.

26)      The Apex Court in the case of Rajeev Choudhary vs.

State (N.C.T.) of Delhi, reported in (2001) 5 SCC 34, held that

the words used in Section 167(2) proviso (a) of Cr.P.C.,



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particularly "imprisonment for a term of less than 10 years,"

should not be interpreted as a minimum sentence of 10 years or

more, but rather mean that the imprisonment may be for a

period of 10 years or less. In other words, if the offence is

punishable with imprisonment up to 10 years, the permissible

period of custody under Section 167(2) of the Cr.P.C. is 90 days.

27)       A conjoint reading of Section 167(2) proviso (a) of

Cr.P.C. and Section 36A(4) of NDPS Act makes it clear that the

offence for which the accused Paras was charged is punishable

only up to 10 years. This means the maximum custody period

under Section 167(2) of the Cr.P.C. shall be 90 days, as the

quantity of seized contraband is not commercial, and he was not

charged under Sections 19, 24, or 27-A of the N.D.P.S. Act, and

only such offences custody period is 180 days, subject to a

further extension of up to one year.

28)       The complainant/advocate in this case filed the first bail

application seeking regular bail under Section 439 of the Cr.P.C.

The delinquent officer, after considering the merits, dismissed

this bail application on 06.10.2004 (Annexure 7). Subsequently,

the accused approached the High Court by filing S.B. Criminal

Misc. Bail Application No. 3844/2004, which was dismissed as

withdrawn with liberty to file a fresh bail application after the

challan was filed. The same advocate then filed a second bail

application under Section 439 Cr.P.C., subsequent to the High

Court's   order    dated       23.11.2004,           which          was   rejected   on

02.12.2004.

29)       The third bail application was filed by another advocate,

Miss Kala Arya, seeking statutory bail under Section 167(2) read


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with Section 439 of the Cr.P.C. The delinquent officer allowed the

application vide order dated 24.02.2005. By the time the third

bail application was filed, the accused had completed 157 days in

custody. It is also not in dispute that two applications i.e. first

and second bail application filed by the complainant (Ashok

Kumar Vaishnav) for grant of bail, were filed under Section 439

Cr.P.C. seeking regular bail on merits.

30)      The    bail    applications        clearly      demonstrate   that   the

complainant/advocate had never sought default/statutory bail;

his applications were for grant of bail on merits. Whereas, the

third bail application was a statutory/default bail application

under Section 167(2) read with Section 439 of the Cr.P.C. The

evidence on record shows that, prior to allowing the statutory

bail application, the delinquent officer adjourned the matter for

four days to enable the prosecution agency to file the charge-

sheet, though such a procedure is not mandated. Nevertheless,

these facts indicate that an opportunity was afforded to the

Investigating Agency to file the charge-sheet before grant of

statutory bail.

31)      Admittedly, as on the date of filing the third bail

application, the 90-day custody period was completed and no

charge sheet had been filed. Even on the date of passing order

on third bail application, the charge-sheet had still not been filed.

In this background, the third bail application was allowed. The

delinquent officer had no option but to allow the application,

given that the maximum permissible period of custody i.e. 90

days had expired and no charge sheet had been filed within that

time. The delinquent officer had no choice to decide the matter


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on merits. If the case was to be decided on merits, granting bail

merely on the change of advocate, while ignoring the rejection of

two earlier bail applications filed by the complainant, Ashok

Kumar Vaishnav, could have assumed that the order was passed

for extraneous consideration or with an oblique motive. Here is

the case where the delinquent officer had no choice or discretion

to refuse bail, as he was statutorily bound to allow the

application upon being satisfied that the 90-days period had been

completed and no charge-sheet had been filed as on the date of

the order. In this background, the grant of bail on the third

application filed by a different advocate, in compliance with the

statutory mandate, cannot be said to have been for extraneous

consideration or oblique motive.

32)      The    evidence        of    PW-2,        the     complainant/advocate,

indicates that he claimed to have raised a ground regarding

entitlement to default bail in the second bail application.

However, this assertion is contrary to the averments made in the

second bail application itself, as well as to the admissions made

during cross-examination. Moreover, the bail order does not

reflect any arguments made by PW-2 concerning statutory bail.

In fact, at the time the second bail application was filed, the 90-

days period had not yet elapsed. The Enquiry Officer's finding

that the grant of bail on the third application filed by another

advocate, coupled with the rejection of the two previous bail

applications filed by the complainant, demonstrates extraneous

consideration or oblique motive, suffers from perversity. No

reasonable person, on a fair assessment of the evidence, could

have arrived at the conclusion that the order passed on the third


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bail application was tainted by extraneous consideration or

oblique motive. The reason is that the two bail applications filed

by PW-2 under Section 439 of the Cr.P.C. were limited to

consideration on merits of the case. In contrast, the third bail

application was not based on merits but was a statutory

entitlement of the accused upon fulfilling certain conditions,

namely, that the 90-day custody period had been completed and

no charge sheet had been filed.

33)      The orders impugned in the present writ petition are also

unsustainable for the reason that there are no details with regard

to extraneous consideration/ulterior motive which is foundation

for initiating disciplinary proceedings. In this regard, it is relevant

to refer to the decision of the Hon'ble Supreme Court in the case

of Abhay Jain Vs. The High Court of Judicature for

Rajasthan and Ors. reported in (2022) 13 SCC 1, wherein it

was held as follows:
        "66. We also find merit in the submission of the
        learned counsel of the appellant that the charges
        filed against the appellant are vague in nature and
        that absolutely no details have been provided
        regarding the said allegation of passing the bail
        order for extraneous considerations/ ulterior motive.
        In this context, there is no detail provided as to
        what was the said extraneous consideration or
        ulterior motive, but merely an inference has been
        drawn on the basis of suspicion. Further, the record
        reveals that no complaint or other material exists
        which could form the basis of the said allegations.
          67. A Three-Judge bench of this court in Ramesh
          Chander Singh vs High Court of Allahabad has
          specifically held that:
              "12. This Court on several occasions has
              disapproved the practice of initiation of
              disciplinary proceedings against officers of the
              subordinate judiciary merely because the
              judgments/orders passed by them are wrong.
              The appellate and revisional courts have been
              established and given powers to set aside such
              orders. The higher courts after hearing the

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              appeal may modify or set aside erroneous
              judgments of the lower courts. While taking
              disciplinary action based on judicial orders, the
              High Court must take extra care and caution.
              .........

5. ....However, the learned Judge inquiring the matter eventually came to the conclusion that the bail had been granted by the appellant in utter disregard of judicial norms and on insufficient grounds and based on extraneous consideration with oblique motive and the charges had been proved. It is important to note that the Judge who conducted the enquiry has not stated in his report as to what was the oblique motive or the extraneous consideration involved in the matter.

........

10. The counsel for the respondent pointed out that on three previous occasions the bail had been declined to the very same accused and as there was no change in the circumstances, the appellant-officer should not have considered the fourth bail application as well. Of course, in the previous bail applications, many of the contentions raised by the accused were considered, but an accused has the right to file bail application at any stage when undergoing imprisonment as an under-trial prisoner. The fact that the two other accused had already been enlarged on bail was a valid reason for granting bail to accused Ram Pal. Moreover, accused Ram Pal had been in jail for one year as an under-trial prisoner and the charge-sheet had already been filed. In our opinion, if accused Ram Pal were to be denied bail in these circumstances, it would have been a travesty of justice especially when all factors relevant to be gone into for considering the bail application were heavily loaded in favour of grant of bail to accused Ram Pal.

........

11. We fail to understand as to how the High Court arrived at a decision to initiate disciplinary proceedings solely based on the complaint, the contents of which were not believed to be true by the High Court. If the High Court were to initiate disciplinary proceedings based on a judicial order, there should have been strong grounds to suspect officer's bona fides and the order itself should have been actuated by malice, bias or illegality. The appellant-officer (Uploaded on 03/11/2025 at 04:44:12 PM) (Downloaded on 03/11/2025 at 09:46:16 PM) [2025:RJ-JD:40498-DB] (19 of 30) [CW-9906/2010] was well within his right to grant bail to the accused in discharge of his judicial functions. Unlike provisions for granting bail in TADA Act or NDPS Act, there was no statutory bar in granting bail to the accused in this case. A Sessions Judge was competent to grant bail and if any disciplinary proceedings are initiated against the officer for passing such an order, it would adversely affect the morale of subordinate judiciary and no officer would be able to exercise this power freely and independently.

..........

18. ...The fact that it was a case of daylight murder wherein two persons died, is not adequate to hold that the accused were not entitled to bail at all. Passing order on a bail application is a matter of discretion which is exercised by a judicial officer with utmost responsibility. When a co-accused had been granted bail by the High Court, the appellant cannot be said to have passed an unjustified order granting bail, that too, to an accused who was a student and had been in jail for more than one year. If at all, the inspecting Judge had found anything wrong with the order, he should have sent for the officer and advised him to be careful in future."

68. Hence, in light of the above judicial pronouncement, we hold that the accused K.K. Jalia had the right to file bail application at any stage when undergoing imprisonment as an under-trial prisoner. The fact that the two other co-accused had already been enlarged on bail was a valid reason for granting bail to accused K.K. Jalia. If the High Court was to initiate disciplinary proceedings based on a judicial order, there should have been strong grounds to suspect appellant's bona fides and the order itself should have been actuated by malice, bias or illegality. This is clearly not the case in the present matter. The appellant was competent and well within his right to grant bail to the accused in discharge of his judicial functions.

69. This court in P.C. Joshi vs State of U.P. held that:

"That there was possibility on a given set of facts to arrive at a different conclusion is no ground to indict a judicial officer for taking one view and that too for alleged misconduct for that reason alone. The enquiry officer has not found any other material, which would reflect on his reputation or integrity or good faith or devotion to duty or that he has been actuated (Uploaded on 03/11/2025 at 04:44:12 PM) (Downloaded on 03/11/2025 at 09:46:16 PM) [2025:RJ-JD:40498-DB] (20 of 30) [CW-9906/2010] by any corrupt motive. At best, he may say that the view taken by the appellant is not proper or correct and not attribute any motive to him which is for extraneous consideration that he had acted in that manner. If in every case where an order of a subordinate court is found to be faulty a disciplinary action were to be initiated, the confidence of the subordinate judiciary will be shaken and the officers will be in constant fear of writing a judgment so as not to face a disciplinary enquiry and thus judicial officers cannot act independently or fearlessly. Indeed the words of caution are given in K.K. Dhawan case and A.N. Saxena case that merely because the order is wrong or the action taken could have been different does not warrant initiation of disciplinary proceedings against the judicial officer. In spite of such caution, it is unfortunate that the High Court has chosen to initiate disciplinary proceedings against the appellant in this case."

From a close perusal of the above judgment, it is clear that the Apex Court on several occasions has disapproved the practice of initiating disciplinary proceedings against officers of subordinate judiciary on the ground of judgments/orders passed by them are wrong. Further, similar to the above case, there are no details in the case on hand with regard to extraneous/oblique motive. The facts in the present case are better than the facts contained in the judgment referred hereinabove. In the referred judgment, there was discretion for the officer to pass orders granting bail, however, there is no such discretion in the present case as the order is required to be passed when certain conditions as required under the statute are fulfilled. Since the requirement of statute is fulfilled the order is consequential without exercise of any discretion at all.

34) The scope of consideration of two applications of complainant and application for grant of statutory bail by changed advocate are fundamentally different. In the case of the (Uploaded on 03/11/2025 at 04:44:12 PM) (Downloaded on 03/11/2025 at 09:46:16 PM) [2025:RJ-JD:40498-DB] (21 of 30) [CW-9906/2010] third bail application, the delinquent officer had no discretion but to grant bail, whereas in the two earlier applications, there was no statutory right to bail; those applications were to be decided solely on their merits. Therefore, we are of the view that the findings recorded by the Enquiry Officer, as accepted by the Full Court, suffer from perversity and are unsupported by evidence.

35) To deal with contention that the Enquiry Officer went beyond the scope of the charge by holding that differential treatment was given to different advocates while referring to the bail applications of Ramesh and Ayub in the same FIR, though, they were not part of the charge-sheet, however, such evidence was significant factor influencing the Enquiry Officer's conclusion that PW-2 and other advocates were treated differently. In fact, PW-2 had no grievance regarding the bail applications of accused Ramesh and Ayub, and further, they were not part of the charge. The finding of proof of charge by enquiry officer was also based on this evidence, which should not have been used to establish the charge.

36) The scope of interference under Article 226 & 227 with regard to disciplinary proceedings has been succinctly stated by the Apex Court in the case of Registrar General, Patna High Court Vs. Pandey Gajendra Prasad & Ors., reported in AIR 2012 (6) SCC 357. The relevant paras of the said judgment read as follows:

"17. According to the Division Bench, both the orders by the first respondent being purely discretionary in terms of his statutory powers, did not warrant any disciplinary action against him on the ground of judicial indiscretion or misconduct. We are constrained to observe that the Division Bench has failed to bear in mind the parameters laid down in a catena of decisions of this Court while dealing (Uploaded on 03/11/2025 at 04:44:12 PM) (Downloaded on 03/11/2025 at 09:46:16 PM) [2025:RJ-JD:40498-DB] (22 of 30) [CW-9906/2010] with the collective decision of the Full Court on the administrative side. It is evident that the Division Bench dealt with the matter as if it was exercising appellate powers over the decision of a subordinate court, granting or refusing bail, and in the process, overstepped its jurisdiction under Article 226 of the Constitution.
18. It is trite that the scope of judicial review, under Article 226 of the Constitution, of an order of punishment passed in departmental proceedings, is extremely limited. While exercising such jurisdiction, interference with the decision of the departmental authorities is permitted, if such authority has held the proceedings in violation of the principles of natural justice or in violation of statutory regulations prescribing the mode of such enquiry or if the decision of the authority is vitiated by consideration extraneous to the evidence on the merits of the case, or if the conclusion reached by the authority, on the face of it, is wholly arbitrary or capricious that no reasonable person could have arrived at such a conclusion, or grounds very similar to the above. (See: Shashikant S. Patil & Anr. (supra).
19. Explaining the scope of jurisdiction under Article 226 of the Constitution, in State of Andhra Pradesh Vs. S. Sree Rama Rao[3], this Court made the following observations:
"....The High Court is not constituted in a proceeding under Article 226 of the Constitution a court of appeal over the decision of the authorities holding a departmental enquiry against a public servant: it is concerned to determine whether the enquiry is held by an authority competent in that behalf, and according to the procedure prescribed in that behalf, and whether the rules of natural justice are not violated. Where there is some evidence, which the authority entrusted with the duty to hold the enquiry has accepted and which evidence may reasonably support the conclusion that the delinquent officer is guilty of the charge, it is not the function of the High Court in a petition for a writ under Article 226 to review the evidence and to arrive at an independent finding on the evidence."

20. Elaborating on the scope of judicial review of an assessment of the conduct of a judicial officer by a Committee, approved by the Full Court, in Syed T.A. Naqshbandi & Ors. Vs. State of Jammu & Kashmir & Ors.[4] this Court noted as follows:

(Uploaded on 03/11/2025 at 04:44:12 PM) (Downloaded on 03/11/2025 at 09:46:16 PM) [2025:RJ-JD:40498-DB] (23 of 30) [CW-9906/2010] "7. .....As has often been reiterated by this Court, judicial review is permissible only to the extent of finding whether the process in reaching the decision has been observed correctly and not the decision itself, as such. Critical or independent analysis or appraisal of the materials by the courts exercising powers of judicial review unlike the case of an appellate court, would neither be permissible nor conducive to the interests of either the officers concerned or the system and institutions of administration of justice with which we are concerned in this case, by going into the correctness as such of ACRs or the assessment made by the Committee and approval accorded by the Full Court of the High Court."

21. In Rajendra Singh Verma (Dead) Through LRs. & Ors. Vs. Lieutenant Governor (NCT of Delhi) & Ors. [5], reiterating the principle laid down in Shashikant S. Patil & Anr. (supra), this Court observed as follows:

"191. ... in case where the Full Court of the High Court recommends compulsory retirement of an officer, the High Court on the judicial side has to exercise great caution and circumspection in setting aside that order because it is a complement of all the Judges of the High Court who go into the question and it is possible that in all cases evidence would not be forthcoming about integrity doubtful of a judicial officer."

It was further observed that:

"192. ....If that authority bona fide forms an opinion that the integrity of a particular officer is doubtful, the correctness of that opinion cannot be challenged before courts. When such a constitutional function is exercised on the administrative side of the High Court, any [pic]judicial review thereon should be made only with great care and circumspection and it must be confined strictly to the parameters set by this Court in several reported decisions.
When the appropriate authority forms bona fide opinion that compulsory retirement of a judicial officer is in public interest, the writ court under Article 226 or (Uploaded on 03/11/2025 at 04:44:12 PM) (Downloaded on 03/11/2025 at 09:46:16 PM) [2025:RJ-JD:40498-DB] (24 of 30) [CW-9906/2010] this Court under Article 32 would not interfere with the order."

22. In the present case, the recommendation of the Standing Committee to dismiss the first respondent from service was based on the findings in the enquiry report submitted by the enquiry officer pursuant to the departmental enquiry; his reply to the show cause notice; his ACR and other materials placed before it.

The recommendation of the Standing Committee was approved and ratified by the Full Court.

23. There is nothing on record to even remotely suggest that the evaluation made, firstly by the Standing Committee and then by the Full Court, was so arbitrary, capricious or so irrational so as to shock the conscience of the Division Bench to justify its interference with the unanimous opinion of the Full Court. As regards the observation of the Division Bench on the reputation of the first respondent based on his ACRs, it would suffice to note that apart from the fact that an ACR does not necessarily project the overall profile of a judicial officer, the entire personal file of the respondent was before the Full Court when a conscious unanimous decision was taken to award the punishment of his dismissal from service. It is also well settled that in cases of such assessment, evaluation and formulation of opinion, a vast range of multiple factors play a vital and important role and no single factor should be allowed to be blown out of proportion either to decry or deify issues to be resolved or claims sought to be considered or asserted. In the very nature of such things, it would be difficult, rather almost impossible to subject such an exercise undertaken by the Full Court, to judicial review, save and except in an extra-ordinary case when the court is convinced that some exceptional thing which ought not to have taken place has really happened and not merely because there could be another possible view or there is some grievance with the exercise undertaken by the Committee/Full Court. [(See: Syed T.A. Naqshbandi (supra)]."

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37) The Apex Court in the case of State of Rajasthan & Ors. Vs. Bhupendra Singh, reported in 2024 RJ-JD18500, held as follows:

"28. Turning our gaze back to the facts herein, we find that the learned Single Judge and the Division Bench acted as Courts of Appeal and went on to re- appreciate the evidence, which the above- enumerated authorities caution against. The present coram, in Bharti Airtel Limited v A S Raghavendra, (2024) 6 SCC 418, has laid down:
'29. As regards the power of the High Court to reappraise the facts, it cannot be said that the same is completely impermissible under Articles 226 and 227 of the Constitution. However, there must be a level of infirmity greater than ordinary in a tribunal's order, which is facing judicial scrutiny before the High Court, to justify interference. We do not think such a situation prevailed in the present facts. Further, the ratio of the judgments relied upon by the respondent in support of his contentions, would not apply in the facts at hand.' (emphasis supplied)
38) The findings of the Enquiry Officer on the charges are vitiated if reliance is placed on extraneous evidence, to come to conclusion that delinquent officer guilty of charges. The findings were also based on irrelevant evidence, particularly the bail orders relating to Ramesh and Ayub, which were not the subject matter of the charge. The findings of enquiry officer are, on their face, arbitrary, and no reasonable person could have arrived at such a conclusion based on evidence on record. The evidence on record do not even reasonably probabilise the conclusion which was drawn by Enquiry Officer that the delinquent officer passed the order on the third bail application for extraneous consideration or with oblique motive when no discretion lies with him.

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39) Dealing with the admission of additional evidence, the rules enable the Enquiry Officer to allow the additional new evidence. The enquiry report clearly reflects that both parties were allowed to produce additional new evidence; in fact, the rules permit the admission of such evidence subject to satisfaction of relevancy and a valid explanation for its previous non-production. The enquiry report further shows that such evidence was allowed to be produced with the consent of the parties. Since the petitioner gave consent, he cannot contend that allowing the additional evidence violated the principles of natural justice. Therefore, the contention in this regard is rejected.

40) The other contention of learned Senior Counsel for the petitioner is that before imposing punishment by His Excellency the Governor, the explanation submitted by the petitioner ought to have been considered, and an opportunity of hearing should have been afforded to him to explain the adverse remarks in the enquiry report. The High Court, while exercising its constitutional powers, recommended the dismissal of the petitioner. At the stage of imposition of punishment by His Excellency the Governor, there is no requirement to provide any further opportunity of hearing. In this regard, it is relevant to refer to Article 311(2) of the Constitution of India, which reads as under:-

"311. Dismissal, removal or reduction in rank of persons employed in civil capacities under the Union or a State.--(1) No person who is a member of a civil service of the Union or an all-India service or a civil service of a State or holds a civil post under the Union or a State shall be dismissed or removed by an authority subordinate to that by which he was appointed.
(Uploaded on 03/11/2025 at 04:44:12 PM) (Downloaded on 03/11/2025 at 09:46:16 PM) [2025:RJ-JD:40498-DB] (27 of 30) [CW-9906/2010] (2) No such person as aforesaid shall be dismissed or removed or reduced in rank except after an inquiry in which he has been informed of the charges against him and given a reasonable opportunity of being heard in respect of those charges:
[Provided that where it is proposed after such inquiry, to impose upon him any such penalty, such penalty may be imposed on the basis of the evidence adduced during such inquiry and it shall not be necessary to give such person any opportunity of making representation on the penalty proposed: Provided further that this clause shall not apply--]
(a) where a person is dismissed or removed or reduced in rank on the ground of conduct which has led to his conviction on a criminal charge; or
(b) where the authority empowered to dismiss or remove a person or to reduce him in rank is satisfied that for some reason, to be recorded by that authority in writing, it is not reasonably practicable to hold such inquiry; or
(c) where the President or the Governor, as the case may be, is satisfied that in the interest of the security of the State it is not expedient to hold such inquiry.
(3) If, in respect of any such person as aforesaid, a question arises whether it is reasonably practicable to hold such 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.] 40.1) From a reading of the above provision, it is clear that no opportunity of making representation and hearing is required to be given at the stage of imposition of the penalty. The argument that the explanation submitted after the decision of the Full Court should be considered is also untenable, as that stage was already been over. Therefore, the said argument of the learned Senior counsel is unsustainable and same is rejected.

41) The argument that the order of dismissal is not a speaking order is also misconceived. The order of His Excellency (Uploaded on 03/11/2025 at 04:44:12 PM) (Downloaded on 03/11/2025 at 09:46:16 PM) [2025:RJ-JD:40498-DB] (28 of 30) [CW-9906/2010] the Governor is not required to be as elaborate as that of a judicial order. The order His Excellence, the Governor reflect the application of mind, On this ground also, the said contention is rejected.

42) The argument of learned Senior Counsel for the petitioner is that since there are no findings of the Full Court while accepting the enquiry report, the recommendation of the Full Court for dismissal is required to be interfered. This Court is of the view that the Full Court, being a constitutional body, exercises administrative functions. The multiple constitutional functionaries are part of decision-making process. Therefore, while considering the enquiry report, the said constitutional body deemed to have applied its mind and had taken a conscious decision. There is no need to give specific findings like any other disciplinary authorities. Therefore, this contention is also rejected.

43) For the reasons detailed herein before, we are of the view that the findings in the impugned order of enquiry report, as accepted by the Full Court suffers from perversity and vitiated on account of consideration of extraneous evidence. No reasonable person would have arrived at a conclusion which the Enquiry Officer and Full Court had arrived on the basis of evidence on record. Hence, the finding of enquiry officer and order of the Full Court in accepting the report of Enquiry Officer is required to be set aside. Consequently, the order of His Excellency Governor dismissing the petitioner from service is also required to be set aside.

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44) The normal rule is that when the Court finds that the termination is illegal, reinstatement with full back wages follow except where there is evidence to show that the employee was gainfully employed during the period of enforced idleness. However, this rule is subject to certain exceptions, such as the closure of the industry or organization, severe financial crisis of employer, or the employee having secured better employment elsewhere. In the present case, the respondents have failed to establish that the petitioner's case falls within any of the exceptional circumstances that would justify denial of full back wages. The case of petitioner do not fall under any exception. Therefore, we are inclined to grant back-wages to the petitioner with all allowances.

45) The order of dismissal was passed on 08.04.2010. The delinquent officer date of birth is 02.02.1951 and he would have retired 28.02.2011. Thus, the petitioner is entitled to full back wages for the period from 08.04.2010 to 28.02.2011, along with continuity of service and all consequential benefits including pension benefits.

46) In the result, the writ petition is allowed. The impugned order of the Enquiry Officer dated 06.03.2009, the resolutions of the Full Court dated 02.02.2010, and the order of the His Excellency the Governor dated 08.04.2010 are set aside. The respondents are directed to pay full back wages for the period from 08.04.2010 to 28.02.2011, along with continuity of service and all consequential benefits including pension benefits treating the deemed reinstatement of the petitioner from the date of order of dismissal and he shall be treated on duty till the date of (Uploaded on 03/11/2025 at 04:44:12 PM) (Downloaded on 03/11/2025 at 09:46:16 PM) [2025:RJ-JD:40498-DB] (30 of 30) [CW-9906/2010] retirement. The pensionary benefits shall be granted to the family of the petitioner, accordingly.

47) In the circumstances, no order as to costs.

48) Pending interlocutory applications, if any, shall stand disposed of.

                                   (BIPIN GUPTA),J                                             (MUNNURI LAXMAN),J



                                    NK/-




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