Delhi High Court
Gsl Saxena vs Union Of India And Anr on 6 March, 2013
Author: Gita Mittal
Bench: Gita Mittal, J.R. Midha
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1. The writ petitioner assails the disciplinary proceedings conducted against him pursuant to the issuance of a charge-sheet dated 25th March, 2008; inquiry report dated 25th January, 2010; advice dated 10th May, 2011 tendered by the Union Public Service Commission (UPSC) thereon and the order dated 16th June, 2011 issued by the respondents finding the petitioner guilty of the charge and imposing a punishment of penalty on him.
2. The facts giving rise to the present writ petition are within the narrow compass and to the extent necessary are noticed hereinafter.
3. The writ petitioner is aggrieved with the recruitment/preparation of a combined merit list in respect of the Constable/General duties for the year 2005. It is undisputed that in this regard, one Shri Hemraj, Additional DIG (Police), Group Centre, Sindri was entrusted with the task of appointing medically fit candidates in terms of instructions which were issued on 18th November, 2005. The petitioner at this time was the DIG (Sindhi) and was required to furnish a report regarding finally selected candidates only to the headquarters. Further instructions were issued on the 25th November, 2005 with regard to the recruitment by the Inspector General of Police, Bihar Sector of the CRPF with regard to the medical examination and the appointments which were to be strictly followed.
4. In view of certain anomalies which were discovered in the process, the petitioner sent a signal bearing no.R.II.1/05-EC.IV dated 5th January, 2006 to the Inspector General of Police, Bihar Sector seeking the following clarification:-
Request clarify whether candidates of reserved category available in the combined merit list of candidates (Gen & SC/ST/OBC who have not availed any concession) (Naxal and non-naxal affected districts) may be called for medical exam to make good shortfall vacancies in reserved category or otherwise (.) for example an OBC candidate Sh Rajendra Prasad Singh (Roll No.11365) available in combined merit list of OBC category of naxal affected districts at Sl.No.93 who have secured 33 marks has been called for medical examination since his name was among the candidates in OBC category who have availed concession whereas an OBC candidate Shavanand Mahto (Roll No.11398) available in combined merit list of naxal (Gen & SC/ST/OBC who have not availed any concession) at Sl.No.789 though secured 50 marks has not been called for medical exam as call ltrs have been issued to candidates as per availability of vacs(.) There are 152 Nos of such OBC candidates secured more than 33 marks available in the combined merit list of naxal (Gen & SC/ST/OBC who have not availed any concession) who have not been called for med. Exam (.) Since this may lead to legal complication(.) Reqst clarify whether these candidates may be called for med. Exam or otherwise.
5. The petitioner has, therefore, sought a specific clarification as to whether SC/ST/OBC category candidates available in the general category who did not avail any concession and who have more marks, could be called for medical examination to make good the shortfall in the reserved category.
6. The petitioners query was clarified by the Inspector General of Police by a signal dated 10th January, 2006 which was in the following manner:-
Rectt of Ct/GD and switching over of candidates of reserve categories(.) The Competent Authy has decided to clarify the point as under (.) All the SC/ST/OBC category candidates brought up to Genl. Category and could not be called for medical examination due to limited vacancy be switched over to their respective categories at appropriate place in the merit list of reserved categories and be called for medical examination subject to availability of vacancy in each category(.)...
7. It is apparent from the above that the Inspector General of Police had clarified that the SC/ST/OBC category candidates brought upto the general category who could not be called for medical examination due to limited vacancy, be switched over to their respective categories on appropriate place in the merit list of reserved category and be called for medical examination.
Pursuant to the receipt of this clarification, the petitioner issued a signal dated 16th January, 2006. The petitioner contends that in terms of the clarification issued by the Inspector General of Police, he had issued a signal dated 16th January, 2006 to the Board which was conducting the recruitment. 8. It appears that the Directorate General of the CRPF had objected to the switch over by the signal dated 24th February, 2006 stating that such type of switch over was contrary to the rules and regulations issued by the Government of India. The response sent to this signal by the letter No.N.R.II-11/02-06-BS-ADM.III dated 18th November, 2006 of the Inspector General of Police, Bihar Sector, is material. In this communication, the Inspector General of Police, Bihar Sector has made the following material admissions:-
(i) That the DIG, Sindri had sought order from him with regard to the switch over. The matter was examined by the Inspector General of Police who had issued the directions in question.
(ii) The DIG (CRPF), Sindri was directed by him to switch over candidates in the manner which had been undertaken.
(iii) It was the order issued by the Inspector General of Police which was complied with by the Group Centre, Sindri.
(iv) The case of switch over was taken up with the office of the Inspector General of Police by the DIG, Sindri and the matter was thereafter referred to the Directorate. The DIG, Sindri was directed to comply with the order of the Directorate.
9. In para 5 of the said communication, the Inspector General of Police specifically stated that this office is of the view that the matter may be closed as at present there is no complaint from anyone. It is implicit from a reading of the above that no dishonesty or mala fide or such wilful conduct which may be treated as misconduct within the meaning of the expression in service jurisprudence can be imputed to the action of the petitioner following the directions of the Inspector General of Police, Bihar Sector. The Inspector General of Police had also specifically stated that the DIG, Sindri i.e. the petitioner had acted strictly in accordance with the directions issued by him. 10. No further action was taken till about two years. Thereafter, on 25th March, 2008, a charge-sheet dated 25th March, 2008 was issued to the petitioner under Rule 14 of the CCS (CCA) Rules, 1965 by the Directorate General of the CRPF making the following charge against him:-
ARTICLE-I That the said Shri G.S.L. Saxena, DIGP, CRPF (IRLA No.897), while functioning as DIGP CRPF Sindri during the year 2005 committed a serious misconduct, in that, when entrusted with the task of issuing offer of appointment after medical examination etc., to the candidates for the post of CT/GD (Male) 2005 from Jharkhand State on the basis of combined merit list of all candidates i.e. Genl. OBC, SC & ST, be directed to shift candidates of SC/OBC categories who were selected on their own merit and without any relaxation from combined merit list to their respective categories by wilfully misinterpreting a clarification issued by IGP BS CRPF, due to which 63 candidates of SC/OBC categories whose names figured in combined merit list, got selected against the quota of their respective category instead of general category, in violation of instruction of Govt. of India, Directorate General CRPF and IGP BS CRPF. Thus, the said Officer failed to maintain absolute devotion to duty and acted in a manner unbecoming of a Government servant thereby violating the provisions contained in Rule 3 (i), (ii) & (iii) of CCS (Conduct) Rules, 1964.
11. The petitioner submitted a detailed statement of defence on 5th May, 2008 inter alia making the following submissions:-
(i) That the task of issuing the appointment letter was not entrusted to him.
(ii) That the appointment was in fact done by the Board which was headed by the Additional DIG (Personnel) and who had not been questioned at all.
(iii) That the switch over was done under the explicit instructions of Inspector General of Police, Bihar Sector who had gone on record to so inform the CRPF Directorate.
(iv) That the case pertained to recruitments effected in the year 2005 whereas the charge-sheet had been issued in the year 2008 when the petitioner was the senior most DIG eligible for further promotion.
12. We may note that aggrieved by the charges levelled against him as well as the orders directing the departmental proceedings on 3rd October, 2008, the petitioner had been compelled to file WP (C) No.7426/2008 praying for quashing of the charge-sheet dated 25th March, 2008 and alternatively for time bound directions for completion of the inquiry.
13. The writ petition was disposed of by the following order passed by this court on 23rd March, 2011 directing the respondents to complete the disciplinary proceedings against the petitioner:
4. Permitting the petitioner to withdraw the writ petition keeping all questions sought to be urged open we direct the 3rd respondent i.e. UPSC to, within 2 weeks from today, tender the necessary advice sought by the 4th respondent. We declare that if within 2 weeks UPSC tenders no advice, respondent No.4 would proceed ahead with the matter treating that UPSC is to tender no advice.
5. The Disciplinary Authority would then proceed to furnish copy of the enquiry report to the petitioner. Petitioner would be granted 2 weeks to file a response to the memorandum under cover of which the report of enquiry would be sent. Final decision would be taken within 4 weeks of receipt of the response.
14. The petitioner complains that on 25th January, 2010, he received an inquiry report whereby the inquiry officer completely ignored the afore-noticed signal dated 10th January, 2006 as well as the letter dated 18th November, 2006 of the Inspector General of Police which clearly stated that the petitioner was bound by the instructions issued by his superiors. The petitioner also contends that the inquiry officer also ignored the evidence brought on record which was supporting the case of the petitioner and held the charge had been proved against the petitioner. It is also pointed out that the inquiry officer had erroneously noticed the response dated 18th November, 2006 sent by the Inspector General of Police, as being dated 27th November, 2006.
15. The petitioner submitted a representation dated 7th August, 2010 contesting the findings of the inquiry officer. The respondents sought the advice of the UPSC which was tendered by the communication dated 10th May, 2011 holding that the charge levelled against the petitioner had been duly proved. The disciplinary authority accepted the report of the inquiry officer as well as the advice of the UPSC and by an order passed on 16th June, 2011, imposed a penalty of 50% cut in pension of the petitioner for ten years along with withholding of gratuity if required by the rules.
16. The petitioner has questioned the legality of the disciplinary proceedings being the charge-sheet dated 25th March, 2008; the inquiry report dated 25th January, 2010; the advice dated 10th May, 2011 tendered by the Union Public Service Commission (UPSC) thereon and the order dated 16th June, 2011 issued by the respondents, by way of the present writ petition inter alia on the ground that the charge against the petitioner was grossly belated; that the findings of the inquiry officer as well as the advice of the UPSC was based on no material at all inasmuch as there is no evidence to support that the petitioner was guilty of any wilful misconduct in the matter.
17. It is further contended that the respondents had failed to take into consideration the fact that the petitioner had acted as per the directions of the Inspector General of Plice, Bihar Sector as clarified by him in the letter dated 18th November, 2006 to the Directorate of the CRPF and that the respondents had failed to take into consideration the deposition of the material witnesses. It has also been vehemently urged that given the facts and circumstances noticed hereinabove, the then Inspector General of Police was a material witness whose deposition was material in respect of the charge for which the petitioner being tried yet the respondent failed to examine him. It is contended that the failure to examine the Inspector General of Police, Bihar Sector vitiates the entire proceedings against the petitioner and an adverse inference with regard to the failure of the respondents to produce material evidence which would be supporting the case of the petitioner, is required to be drawn.
18. Learned counsel for the respondents has opposed the writ petition primarily on the ground that the petitioner has wilfully misinterpreted the signal dated 10th January, 2006 which had been issued by the Inspector General of Police.
19. We have heard learned counsel for the parties at length and have given a considered thought to the entire matter. We find that the response of the Inspector General of Police, CRPF, Bihar Sector dated 10th January, 2006 is further clarified by the Inspector General of Police, Bihar Sector who had categorically stated in his further communication dated 18th November, 2006 to the Directorate that the petitioner had abided strictly by the instructions issued by him. We are of the opinion that given the facts and circumstances of the case, no person or authority was better placed than the Inspector General of Police, Bihar Sector to evaluate the conduct of the petitioner and make an interpretation of the instructions issued than the author of the instructions himself. The Inspector General of Police has categorically stated more than once in the communication dated 18th November, 2006 that the manner in which the petitioner has conducted himself was strictly in terms of the directions given by him in the signal dated 10th January, 2006. Therefore, the opposition to the writ petition by the respondents on the ground that the petitioner has misinterpreted the signal dated 10th January, 2006 of the Inspector General of Police, is fallacious and deserves to be rejected.
20. There is yet another reason in support of the findings recorded by us. Our attention has been drawn to the testimony of PW 4 Shri Rakesh Kumar who was the second-in-command and was part of the Board which was effecting the relevant recruitment. The deposition of this witness sheds valuable light on the conduct of the petitioner especially issued as to whether the selection was in terms of the signal of the Inspector General of Police, Bihar Sector. Question nos.2, 3, 4 & 5 put to the witness and the answers thereto and read as follows:-
xxx Q.No.2 : In your statement you have stated that in pursuance to ibid signal of IGP BS dated 10/1/06, the candidates switched over w.e.f. 27/1/06 to 2/2/06 and the switching over of ST candidates was not done since a large number of ST candidates had found placed in ST category list. Who carried out this switching over and under whose orders and who ordered switching over of ST candidates. Please produce the relevant orders to the fact?
Ans.2 : On the basis of aforementioned signal of IGP BS dated 10/1/06, instruction was issued to GC Sindri by DIG Sindri HQR vide signal No.R.II-1/06-EC-IV dated 16/1/2006 (Exhibit SW-III) which was signed by me on 16/1/06. As regards of ST candidates, there was sufficient number of ST candidates were available.
Q.No.3 Are you aware about the instructions of hte Government issued vide DOPTOM No.36012/13-88-Estt(SCT) dated 22/5/89, Dte General CRPF order No.R.II-015/02-PERS-II dated 13/9/02 and R.II-15/96-ESTT-II dated 12/12/96 in which the procedure is laid down to prepare the combined merit list for recruitment and if so, why you have not pointed out to the IGP Office while working as Comdt (Staff)?
Ans:3 The combined merit list was prepared by a board as per order of IGP BS.
Q.No.4 Was any P.E. conducted in to this issue for subject recruitment and was your statement recorded? If so, by whom?
Ans.No.4 P.E was conducted by Shri S.K. Jain, IPS, IGP (M&N) and my statement was recorded by him.
Q.No.5: In your statement recorded in the P.E., you have stated that there was no fault on the part of GC Sindri or DIG Sindri Office regarding switching over of candidates which was done only on the directins of IG BS issued vide signal dated 10/1/06. This has not been stated by you in your statement today which proposition is correct?
Ans No.5: I still stand by the statement given in the P.E.
21. A perusal of the above would show that not only the petitioner but the Board which effected the recruitment had also interpreted and understood the signal of the Inspector General of Police dated 10th January, 2006 in the same manner as the petitioner. This witness had further stated that a preliminary inquiry had been recorded wherein it had come on record that no fault was attributable to the petitioner who was the DIG at the Sindri office of the respondents at the relevant time. The IGP, BS, CRPF who authorised the communication endorses the correctness of the interpretation.
22. In view of the above, it is writ large on the face of the record that the impugned proceedings and orders are based on no relevant material or evidence at all. The report of the inquiry officer as well as the advice of the UPSC and the orders passed against the petitioner by the disciplinary authority have in fact failed to take into consideration the material evidence which has been brought on record by the prosecution witnesses themselves. Given the signals dated 10th January, 2006 and 18th November, 2006 by the Inspector General of Police, the entire proceedings against the petitioner were misconceived.
23. In support of the writ petition, learned counsel for the petitioner has also placed reliance on the pronouncement of the Supreme Court reported at (1999) 8 SCC 582 Hardwari Lal Vishal Yadav. State of U.P. & Ors. placing reliance on (2007) 7 SCC 206 Bongaigaon Refinery & Petrochemicals Ltd. Vs. Girish Chandar Sarma, it is urged that if any decision is taken collectively, one person cannot be singled out for disciplinary action. In the instant case, no action at all has been taken against any other person despite the clear and admitted instructions by the petitioners superior or against the board members who effected the recruitment.
24. Our attention is drawn by learned counsel for the petitioner to a judgment dated 5th September, 2012 passed in WP (C) No.5564/2012 R.T. Paramhans Vs. Union of India & Anr. The petitioner had raised a challenge similar to the instant case. The observations and findings of the court in paras 16 to 20 of this judgment are material and read as follows:-
xxx 16. The main contention of the petitioner is that the decisions of the respondents in holding the petitioner liable with respect of para-A of Charge-I are perverse, as there is no evidence on record to prove the guilt against the petitioner. He further states that no action was taken against any member of the Board of Officers who had conducted a recruitment process in Nagpur wherein same recruitment of Fitter (Diesel) has been made as Fitters in CRPF. The petitioner is superceded by his juniors who have already been promoted to the rank of DIGP, as a result of departmental inquiry against him.
17. It is also alleged that the petitioner is suffering since 2008 as a result of departmental enquiry against him and will continue to suffer unless the petitioner be exonerated of the penalty of Censure?????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????? ?w?h?i?c?h? ?w?a?s? ?i?m?p?o?s?e?d? ?u?p?o?n? ?h?i?m?.?
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?1?8?.? ?T?h?e?r?e? ?i?s? ?n?o? ?d?e?n?i?a?l? ?t?h?a?t? ?t?h?e? ?s?a?m?e? ?p?r?o?c?e?s?s? ?w?h?i?c?h? ?w?a?s? ?a?d?o?p?t?e?d? ?b?y? ?a?n?o?t?h?e?r? ?r?e?c?r?u?i?t?m?e?n?t? ?B?o?a?r?d? ?t?a?k?e?n? ?p?l?a?c?e? ?i?n? ?N?a?g?p?u?r? ?a?n?d? ?t?h?e? ?c?a?n?d?i?d?a?t?e?s? ?s?e?l?e?c?t?e?d? ?b?y? ?t?h?e? ?s?e?c?o?n?d? ?B?o?a?r?d? ?a?r?e? ?c?u?r?r?e?n?t?l?y? ?w?o?r?k?i?n?g? ?i?n? ?C?R?P?F? ?a?n?d? ?n?o? ?a?c?t?i?o?n? ?w?a?s? ?t?a?k?e?n? ?W?P? ?(?C?)? ?N?o?.5564/2012 by the respondents against any member of the second Board for adopting exactly the same process which was done by the petitioner and he was charged with. Therefore, it appears from the material placed on record that the respondents have ignored the findings of the Enquiry Officer wherein it was stated that usually, the normal course of action adopted by the authorities in case of procedural errors in the recruitment process is for sending the same back for rectification by the Board of Officers which was not done in the present case.
19. The petitioner was considered by DPC for promotion from the rank of Commandant to DIGP and his recommendation is kept in sealed cover.
20. We are of the view, even if the petitioner was responsible for an error which was made collectively by the Recruitment Board in the present case, no opportunity was given to the petitioner to cure his mistakes. Further, no action was taken against any members of the Board who had conducted a recruitment process in Nagpur wherein similar recruitment of Fitters (Diesel) has been made as Fitters in CRPF.
25. We are informed that the respondents challenge to the judgment of this case stands rejected by the Supreme Court of India.
26. In view of the above, this writ petition deserves to be granted. We accordingly, direct as follows:-
(i) The orders dated 16th June, 2011 is hereby set aside and quashed.
(ii) It is held that the petitioner shall be entitled to all consequential benefits.
(iii) The respondents shall pass appropriate orders in favour of the petitioner within a period of eight weeks from today and communicate the same to the petitioner forthwith. Payments in terms of the orders which are passed in favour of the petitioner, shall be paid to the petitioner within a further period of six weeks.
(iv) The petitioner shall be entitled to costs which are quantified at Rs.15,000/-.
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