Full Judgment Text
REPORTABLE
IN THE SUPREME COURT OF INDIA
CIVIL APPELLATE JURISDICTION
CIVIL APPEAL NO. 9579 of 2003
R.S. Sujatha …Appellant
Versus
State of Karnataka & Ors. …Respondents
J U D G M E N T
Dr. B.S. CHAUHAN, J.
1. This appeal has been filed against the judgment and order of the
Central Administrative Tribunal, Bangalore Bench (hereinafter called
as the ‘Tribunal’) dated 19.12.2002 in Original Application No. 715
of 2002.
2. (A) Facts and circumstances giving rise to this case are that the
State of Karnataka vide order dated 24.1.2001 initiated disciplinary
proceedings against the appellant, an Indian Administrative Service
Officer of Karnataka cadre, on the allegation that she had committed
certain irregularities in the allotment of wheat under a special
programme called the State Funded Wheat Based Nutrition
Programme of the Government of India at public distribution system
rates to a supplier called M/s Nandi Agro Industries Ltd. The said
regular enquiry stood initiated on the basis of the preliminary enquiry
report dated 31.3.1997.
(B) The appellant filed O.A. No.715 of 2002 before the Tribunal on
5.8.2002 for quashing the Articles of charge dated 30.11.1999 and
subsequent proceedings on diverse grounds. In the said Original
Application (hereinafter referred to as `O.A.’), the appellant had made
a specific averment that the charge memo dated 30.11.1999 was
received by her only on 19.6.2002, as the copy of the same was
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furnished to her by the 3 respondent i.e. the Enquiry Officer.
Therefore, it had been contended by the appellant that she had
approached the Tribunal within limitation. However, taking abundant
caution, she had also filed an application for condonation of delay.
(C) The reply to the said application was filed by the respondents
therein on 18.10.2002, wherein it was contended that the order dated
30.11.1999 had been issued to the appellant on 2.12.1999 by
Registered Post with AD.
(D) The Tribunal instead of proceeding with the matter on merit or
deciding the issue of limitation, passed an order dated 15.11.2002
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stating that the appellant had made a false statement in the O.A.
regarding limitation which was intentional and deliberate. Therefore,
prima facie, the Tribunal was of the view that the appellant had
committed criminal contempt and a show cause notice dated
15.11.2002 was issued to the appellant calling upon her “to appear in
person before the Tribunal on 29.11.2002 at 10.30 a.m. to answer the
said show cause notice on which day the matter would be listed for
hearing”.
(E) The appellant not only appeared in response to the said notice
personally, but submitted a reply to the show cause notice contending
that she had not made any false statement for the purpose of securing
the order of condonation of delay and in fact the charge memo dated
30.11.1999 had been served upon her first time on 19.6.2002. She also
made a request to summon certain government records to substantiate
her case.
(F) The Tribunal directed the respondent authorities to produce the
documents, i.e. Inward Register, Postal Acknowledge Due and
original letter dated 23.12.1999 and other relevant documents, if any,
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which would have bearing on the matter by the next date and the
matter was directed to be listed on 12.12.2002.
(G) On 12.12.2002 though learned counsel for the respondent
authorities did not produce any of the required documents, but he
produced the photocopies of letter dated 23.12.1999 and the Inward
Register. The Tribunal adjourned the case to 19.12.2002. The
Tribunal passed the impugned order dated 19.12.2002 holding that the
appellant was guilty of perjury, as well as of criminal contempt of the
Tribunal and imposed the punishment of imprisonment till rising of
the court and a fine of Rs.2,000/-.
3. Being aggrieved, the appellant approached the High Court by
filing a writ petition which was ultimately dismissed vide order dated
2.9.2003, observing that the High Court had no jurisdiction to
entertain the matter placing reliance on the judgment of this Court in
T. Sudhakar Prasad v. Govt. of A.P. & Ors ., (2001) 1 SCC 516,
wherein it had been held that against the order under the Contempt of
Court Act, 1971, passed by the Tribunal, the party aggrieved has to
approach this Court. Hence, this appeal.
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4. Shri Rajesh Mahale, learned counsel appearing for the appellant
has submitted that the order impugned had been passed in flagrant
violation of not only the principles of natural justice, but also the
statutory rules known as The Contempt of Courts (C.A.T.) Rules,
1992 (hereinafter called as 1992 Rules) and the appellant had not been
given due opportunity to defend herself. The Tribunal did not decide
the original application filed by the appellant. The Tribunal picked up
one of the pleadings taken by the appellant treating it to be false and
initiated the criminal contempt proceedings which is not permissible
in law. Therefore, the order impugned is liable to be set aside.
5. There is none to oppose the appeal. We have considered the
submissions made by learned counsel for the appellant.
6. The facts mentioned hereinabove make it clear that the Tribunal
has not adjudicated upon the case filed by the appellant at all. The
appellant had approached the Tribunal for quashing of the disciplinary
proceedings initiated against her and the opposite party had raised the
issue of limitation pointing out that she had been served the Articles
of Charges at an earlier stage and the averment made by the appellant
in this regard was false. The Tribunal ought to have framed an issue
on limitation, asked the parties to lead evidence and decide it on merit.
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It was totally unwarranted and uncalled for to initiate criminal
contempt proceedings merely on the basis of the pleadings taken by
the opposite parties therein. Criminal contempt has been defined
under Section 2(c) of the Contempt of Courts Act, 1971, which reads
as under:
“(c) “Criminal Contempt” means the publication
(whether by words, spoken or written, or by signs,
by visible representations, or otherwise) of any
matter or the doing of any other act whatsoever
which; -
(i) scandalize or tends to scandalize or lowers
or tends to lower the authority of any court;
or
(ii) prejudices, or interferes or tends to interfere
with, the due course of any judicial
proceedings; or
(iii)interferes or tends to interfere with, or
obstructs or tends to obstruct, the administration
of justice in any other manner.”
It has been submitted by learned counsel for the appellant that
none of the above referred to provisions was attracted in the facts of
this case.
7. The learned Tribunal proceeded on the basis that this Court in
Chandra Shashi v. Anil Kumar Verma, (1995) 1 SCC 421, held
that nobody should be permitted to indulge in immoral acts like
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perjury, prevarication and motivated falsehoods in the judicial
proceedings and if someone does so, it must be dealt with
appropriately. In case the recourse to a false plea is taken with an
oblique motive, it would definitely hinder, hamper or impede the flow
of justice and prevent the courts from performing their legal duties.
8. Before the Tribunal, the case had been at a preliminary stage,
thus, the Tribunal ought not to have initiated the criminal contempt
proceedings at such a pre-mature stage making reference to the
provisions of Sections 191, 193 and 197 of the Indian Penal Code,
1860 (hereinafter called as the IPC). Section 191 IPC deals with
giving false evidence; Section 193 provides for punishment for giving
false evidence; and Section 197 deals with issuing or signing a false
certificate.
9. In Chajoo Ram v. Radhey Shyam & Anr., AIR 1971 SC
1367, this Court while dealing with a similar issue held as
under:
“…………No doubt giving of false evidence and filing
false affidavits is an evil which must be effectively curbed
with a strong hand but to start prosecution for perjury
too readily and too frequently without due care and
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caution and on inconclusive and doubtful material
defeats its very purpose. Prosecution should be ordered
when it is considered expedient in the interests of justice
to punish the delinquent and not merely because there is
some inaccuracy in the statement which may be innocent
or immaterial. There must be prima facie case of
deliberate falsehood on a matter of substance and the
Court should be satisfied that there is reasonable
foundation for the charge…..”
10. In Chandrapal Singh & Ors. v. Maharaj Singh & Anr., AIR
1982 SC 1238, this Court while dealing with a case of a false
statement for the purposes of Sections 193 and 199 IPC held as under:
“ …….. When it is alleged that a false statement has
been made in a declaration which is receivable as
evidence in
any Court of Justice or before any public servant or
other person, the statement alleged to be false has to be
set out and its alleged falsity with reference to the truth
found in some document has to be referred to pointing
out that the two situations cannot co-exist, both being
attributable to the same person and, therefore, one to his
knowledge must be false. Rival contentions set out in
affidavits accepted or rejected by courts with reference
to onus probandi do not furnish foundation for a
charge under Section 199 IPC. ………Acceptance or
rejection of evidence by itself is not a sufficient yardstick
to dub the one rejected as false. Falsity can be alleged
when truth stands out glaringly and to the knowledge of
the person who is making the false statement. Day in
and day out in courts averments made by one set of
witnesses are accepted and the counter-averments are
rejected. If in all such cases complaints under Section
199 IPC are to be filed not only there will open up
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floodgates of litigation but it would unquestionably be
an abuse of the process of the court….. ”
(Emphasis added)
11. In Pritish v. State of Maharashtra & Ors., AIR 2002 SC 236,
this Court dealt with the provision of Section 340 of the Code of
Criminal Procedure, 1973 extensively, in a case where admittedly
forged document had been filed in a reference under Section 18 of the
Land Acquisition Act, 1894 for getting a higher amount of
compensation. The court observed as under :-
“Reading of the sub-section makes it clear that the hub
of this provision is formation of an opinion by the court
(before which proceedings were to be held) that it is
expedient in the interest of justice that an inquiry should
be made into an offence which appears to have been
committed…………But once the court decides to do so,
then the court should make a finding to the effect that on
the fact situation it is expedient in the interest of justice
that the offence should further be probed into……It
should again be remembered that the preliminary inquiry
contemplated in the sub-section is not for finding
whether any particular person is guilty or not. Far from
that, the purpose of preliminary inquiry, even if the court
opts to conduct it, is only to decide whether it is
expedient in the interest of justice to inquire into the
offence which appears to have been committed.”
12. Thus, from the above, it is evident that the inquiry/contempt
proceedings should be initiated by the court in exceptional
circumstances where the court is of the opinion that perjury has been
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committed by a party deliberately to have some beneficial order from
the court. There must be grounds of a nature higher than mere surmise
or suspicion for initiating such proceedings. There must be distinct
evidence of the commission of an offence by such a person as mere
suspicion cannot bring home the charge of perjury. More so, the court
has also to determine as on facts, whether it is expedient in the interest
of justice to inquire into the offence which appears to have been
committed.
13. In the instant case, all the documents summoned by the
Tribunal had not been produced before the Tribunal. More so, any
document sent by Registered Post is presumed to have been received
by the addressee in view of the provisions of Section 27 of the
General Clauses Act, 1897 and Illustration (f) of Section 114 of the
Indian Evidence Act, 1872, but every presumption is rebuttable.
(Vide: Harihar Banerji v. Ramshashi Roy, AIR 1918 PC 102;
Gujarat Electricity Board & Anr. v. Atmaram Sugomal Postani,
AIR 1989 SC 1433; Shimla Development Authority & Ors. v.
Santosh Sharma (Smt.) & Anr., (1997) 2 SCC 637; and Dr. Sunil
Kumar Sambhudayal Gupta & Ors. v. State of Maharashtra, JT
2010 (12) SC 287).
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14. In such a fact-situation, the appellant ought to have been given
time to rebut this presumption and lead evidence to prove that she did
not receive the said document as alleged by the opposite parties, and it
was necessary to do so for the reasons we record later.
15. The Tribunal proceeded in great haste as the show cause notice
was issued by the Tribunal on 15.11.2002 for initiating the said
proceedings, fixed the date for 12.12.2002 and disposed of the matter
on 19.12.2002. The Tribunal failed to appreciate that criminal
contempt proceedings are quasi criminal in nature and any action on
the part of a party by mistake, inadvertence or by misunderstanding
does not amount to contempt. In contempt proceedings, the court is
the accuser as well as judge of the accusation. Therefore, it behoves
the Tribunal to act with great circumspection as far as possible,
making all allowances for errors of judgment. Any action taken in
unclear case is to make the law of contempt do duty for other
measures and therefore is totally unwarranted and should not be
encouraged. The proceedings being quasi criminal in nature, burden
and standard of proof required is the same as required in criminal
cases. The charges have to be framed as per the statutory rules
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framed for the purpose and proved beyond reasonable doubt keeping
in mind that the alleged contemnor is entitled to the benefit of doubt.
Law does not permit imposing any punishment in contempt
proceedings on mere probabilities. The court cannot punish the
alleged contemnor without any foundation merely on conjectures and
surmises. (See Sahdeo alias Sahdeo Singh v. State of Uttar Pradesh
& Ors., (2010) 3 SCC 705).
16. Needless to say, the contempt proceedings being quasi criminal
in nature require strict adherence to the procedure prescribed under
the rules applicable in such proceedings. In L.P. Misra (Dr.) v. State
of U.P., AIR 1998 SC 3337, this court while dealing with the issue of
observance of the statutory rules held as under:
“……… we are of the opinion that the Court while
passing the impugned order had not followed the
procedure prescribed by law. It is true that the
High Court can invoke powers and jurisdiction
vested in it under Article 215 of the Constitution of
India but such a jurisdiction has to be exercised
in accordance with the procedure prescribed by
law .”
(Emphasis supplied)
17. In Three Cheers Entertainment Pvt. Ltd. v. C.E.S.C. Ltd.,
AIR 2009 SC 735, and Sahdeo (supra), this Court reiterated a similar
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view observing that in contempt proceedings the court must conclude
the trial and complete the proceedings “in accordance with the
procedure prescribed by law”.
18. The instant case has to be dealt with under the 1992 Rules.
The aforesaid rules provide the following procedure:
“ Rule 7. Initiation of proceedings: -
(i) ………………………..
(ii)
Every petition for ‘Criminal Contempt’
made in accordance with these rules and
every information other than a petition, for
initiating action for criminal contempt
under the Act on being scrutinized by the
Registrar shall first be placed on the
administrative side before the Chairman in
the case of the principal Bench and the
concerned Vice Chairman in the case of
other Benches or such other Member as
may be designated by him for this purpose
and if he considers it expedient and proper
to take action under the Act, the said
petition or information shall be registered
and numbered in the Registry and placed
before the Bench for preliminary hearing.
(iii)
When suo motu action is taken, the
statement of facts constituting the alleged
contempt and copy of the draft charges
shall be prepared and signed by the
Registrar before placing them for
preliminary hearing.
Rule 13. Hearing of the case and trial:-
(a)……………………..
(b)………………………
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(c) The respondent shall be furnished with a copy
of the charge framed, which shall be read over
and explained to the respondent. The Tribunal
shall then record his plea, if any.
(d)…………………….
(e) …………………….
Rule 15. Procedure for trial:-
(i)
Except as otherwise provided in the Act and
these rules, the procedure prescribed for
summary trials under Chapter XXI of the
Code shall as far as practicable be followed
in the trial of case for contempt.
(ii) ……………………..
(iii) ………………………
(iv) ……………………..
(v) …………………….
(Emphasis added)
19. In the instant case, admittedly, the procedure prescribed
hereinabove under the 1992 Rules has not been followed. A criminal
contempt case has neither been registered nor numbered separately.
No charge (s) had ever been framed by the Tribunal as mandatorily
required under the rules. Thus question of furnishing the copy of the
same to the appellant did not arise. Therefore, the contempt
proceedings had not been concluded in conformity with the aforesaid
rules at all. This Court in Sahdeo (supra) while dealing with a similar
situation held as under:
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“Every statutory provision requires strict
adherence, for the reason that the Statute creates
rights in favour of persons concerned. The
impugned judgment suffered from non-observance
of the principles of natural justice and not
ensuring the compliance of Statutory Rules, 1952.
Thus, the trial itself suffered from material
procedural defect and stood vitiated. The
impugned judgment and order, so far as the
conviction of the appellants in Contempt
proceedings are concerned, is liable to be set
aside.”
(Emphasis added)
20. The ratio of the judgment in Sahdeo (supra) applies to this case
in entirety. The instant case is squarely covered by the aforesaid
judgment. In view of the above, the impugned judgment and order
dated 19.12.2002 in O.A. No. 715 of 2002 passed by the Tribunal is
liable to be set aside. The appeal is allowed. The judgment and order
of the Tribunal is set aside. No costs.
………………
………………J.
(P. SATHASIVAM)
..………………………
……J.
(Dr. B.S. CHAUHAN)
New Delhi;
November 29, 2010
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