Full Judgment Text
REPORTABLE
IN THE SUPREME COURT OF INDIA
CIVIL APPELLATE JURISDICTION
CIVIL APPEAL NO. 1133 OF 2016
(Arising out of S.L.P.(C) 21027 OF 2013)
Union of India & Ors. ... Appellants
Versus
Diler Singh ... Respondent
J U D G M E N T
Dipak Misra, J.
JUDGMENT
The respondent, a constable in Central Reserve Police
Force (CRPF), was enrolled as such on 1.4.1990. He was
posted in the 23 Battalion where he served continuously
approximately for fourteen years. Subsequently, he was
transferred to 61 Battalion where he served for two years.
During the second posting a charge-sheet was served on
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him alleging that on 22.06.2001 about 11.30 hrs. he left the
campus without permission of the competent authority and
went to the bazaar and consumed liquor and quarrelled
with some civilians. On being informed, S.I. Sheoji Ram,
HC Mahabir Singh and Captain Fiyaz Ahmed brought him
from bazaar to the campus. On the advice of the competent
authority, a medical examination was conducted on the
respondent and as per the medical report given by the
assistant surgeon, District Hospital, Medak at Sangareddy,
it was found that the respondent had consumed liquor.
2. On the basis of the aforesaid report, a departmental
enquiry was ordered by Commandant 61-Bn. vide Memo No.
P-VIII-8/01-61-EC-II dated 6.7.2001 and the respondent
was also placed under suspension with effect from 6.7.2001.
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The enquiry officer conducted an enquiry and on the base of
the material and testimony of the witnesses came to hold
that the charges had been proved.
3. The disciplinary authority concurred with the findings
recorded by the enquiry officer and came to hold that the
charges levelled against the respondent had been proved
beyond doubt. Recording concurrence with the findings
returned by the enquiry officer, the disciplinary authority
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opined that the respondent was not fit to continue any more
in the Force and accordingly in exercise of power conferred
under Section 11(1) of the Central Reserve Police Force Act,
1949 (for brevity, ‘the Act’) read with Rule 27-A(1) of the
Central Reserve Police Force Rules, 1955 (in short ‘the
Rules’) ordered the respondent to be removed from the
service. It was further stipulated in the order that except
the pay and allowances given to the respondent during
suspension period from 7.7.2001 to 12.9.2001, he would not
be entitled to any pay or allowances and the period of
suspension shall be treated as such. That apart, it was
directed that medals and awards, if any, that had been
received by the delinquent employee during service period
shall be forfeited under the provision of Section 12(1) of the
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Act.
4. The respondent initiated a civil action by filing Civil
Suit No.253/2002/05 in the Court of Civil Judge (Senior
Division), Narnaul seeking a declaration that the orders
passed against him by the authorities were illegal. The
appellants contested the suit by putting forth a stand that
due enquiry was held by the authorities and the charges
levelled against the respondent were duly proved and there
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was no procedural error in the enquiry.
5. Learned Civil Judge framed the following issues:
“1. Whether the impugned order No.
P-III-8/2001-61 Stha II dated 12 September,
2001 are wrong, illegal, against facts, arbitrary
malafide, against principles of natural justice,
null and void and ineffective against the rights of
plaintiff?
2. Whether the plaintiff has no cause of action to
file the suit?
3. Whether the civil Court has no jurisdiction to
try and entertain the present suit?
4. Whether the suit is not maintainable in the
present form?”
6. While dealing with the issue number 1, the trial Court
took note of the fact that the charges were issued against
the delinquent officer under Section 11(1) of the Act, relied
on the decision rendered in Ram Singh Rai v. Union of
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1 2
India and Rattan Singh v. Union of India & Others and
came to hold that the disciplinary authority was not entitled
in law to convert the charge under Section 11(1), a minor
penalty to a major penalty and accordingly opined that the
impugned order of dismissal was illegal, null and void. The
trial Court further held that it had jurisdiction to try the
suit and eventually decreed the suit with costs. It directed
1
2003 (1) SCT 523
2
2003 (1) SCT 59
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for reinstatement of the respondent plaintiff in service with
effect from 12.09.2001 along with arrears of pay and
allowances and other consequential benefits.
7. Being aggrieved, the aforesaid judgment and decree
was called in question by the department in Civil Appeal
No.11 of 2009 before the Additional District Judge, Narnaul
who by judgment dated 27.03.2010 reversed the judgment
of the trial Court and held that the trial Court had no
jurisdiction to try the suit, and further the judgment and
decree passed by it were not sustainable in view of the
decision in Union of India & others v. Ghulam Mohd.
3
Bhat .
8. The respondent assailed the defensibility of the
judgment of the first appellate Court in Regular Second
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Appeal No.4578/2010. Learned single Judge noted the
grounds of challenge, referred to the decision in Ram Singh
Rai (supra) and reproduced a passage from the decision in
Deputy Inspector General of Police, CRPF and another
4
v. Akhilesh Kumar and came to hold that the controversy
is covered by the judgment of the Calcutta High Court
rendered in Akhilesh Kumar (supra) and accordingly
3
(2005) 13 SCC 228
4
2007 (6) SLR 438
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opined that the allegations levelled against the respondent
plaintiff were not of serious nature which would have
attracted penalty of dismissal from the services. The
aforesaid perception led to acceptance of the appeal and
dislodgment of the judgment and decree of the first
appellate Court and restoration that of the trial Court.
9. We have heard Mr. Maninder Singh, learned Additional
Solicitor General for Union of India and Mr. J.S. Naik,
learned counsel for the respondent.
10. To appreciate the controversy, it is relevant to refer to
the relevant provisions of the Act. Section 2(c) defines “the
Force” to mean the Central Reserve Police Force. Section
2(d) defines “member of the Force” to mean a person who
has been appointed to Force by the Commandant, whether
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before or after the commencement of the Act and in Section
1,3,6,7,16,17,18 and 19, includes also a person appointed
to the Force by the Central Government, whether before or
after such commencement. Section 7 specifies in general
duties of members of the Force. Section 8 provides for
superintendence, control and administration of the Force.
Section 9 stipulates about more heinous offences. It
provides that a member who commits heinous offences shall
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be punishable with transportation for life for a term of not
less than seven years or with imprisonment for a term
which may extend to fourteen years or with fine which may
be extended to three months’ pay or with fine to that extent
in addition to such sentence of transportation or
imprisonment. Section 10 provides for less heinous
offences. It states that a member of the Force who commits
such offence shall be punishable within imprisonment for a
term which may extend to one year, or with fine which may
extend to three months’ pay, or with both. Thus, the
aforesaid provision defines the offences and provides
punishment for the same.
11. In the case at hand, we are concerned with the concept
of minor punishments as postulated under Section 11 of the
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Act. Section 11 of the Act reads as follows:-
“ 11. Minor punishments. – (1) The Commandant
or any other authority or officer as may be
prescribed, may, subject to any rules made under
this Act, award in lieu of, or in addition to,
suspension or dismissal any one or more of the
following punishments to any member of the
Force whom he considers to be guilty of
disobedience, neglect of duty, or remissness in
the discharge of any duty or of other misconduct
in his capacity as a member of the Force, that is
to say, -
(a) reduction in rank;
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(b) fine of any amount not exceeding one
month’s pay and allowances;
(c) confinement to quarters, lines or camp for a
term not exceeding one month;
(d) confinement in the quarter-guard for not more
than twenty-eight days; with or without
punishment drill or extra guard, fatigue or other
duty, and
(e) removal from any office of distinction or
special emolument in the Force.
(2) Any punishment specified in clause (c) or
clause (d) of sub-section (1) may be awarded by
any gazetted officer when in command of any
detachment of the Force away from headquarters,
provided he is specially authorised in this behalf
by the Commandant.
(3) The assistant commandant, a company officer
or a subordinate officer, not being below the rank
of subedar or inspector, commanding a separate
detachment or an output or in temporary
command at the headquarters of the Force, may,
without, a moral trial, award to any member of
the Force who is for the time being subject to his
authority any one or more of the following
punishments for the commission of any petty
offence against discipline which is not otherwise
provided for in this Act, or which is not a
sufficiently serious nature to require prosecution
before a Criminal Court, that is to say, -
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(a) confinement for not more than seven days in
the quarter-guard or such other place as may be
considered suitable, with forfeiture of all pay and
allowances during its continuance;
(b) punishment drill, or extra-guard, fatigue or
other duty, for not more than thirty days, with or
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without confinement to quarters, lines or camp;
(c) censure or severe censure: provided that this
punishment may be awarded to a subordinate
officer only by the Commandant.
(4) A jamadar or sub-inspector who is temporarily
in command of a detachment or an outpost may,
in like manner and for the commission of any like
offence, award to any member of the Force for the
time being subject to his authority any of the
punishments specified in clause (b) or
sub-section (3) for not more than fifteen days.”
12. At a subsequent stage, we shall advert to the
interpretation placed by this Court on the aforementioned
provision. Prior to that, it is necessary to state in detail the
misconduct or misbehaviour in support of charges framed
against the respondent. The same is as under:
“ Article – 1
That, on transfer of Force No.901342841
Constable Diler Singh, from 23 Battalion C.R.P.F.
to 61 Battalion C.R.P.F., he reported on
28.09.2000 and was posted in C/61. Presently,
Force No. 901342841 Constable Diler Singh is
posted at Platoon No.7, Police Station Jinnaram,
C.R.P.F. Narsapur, Medhak, Andhra Pradesh,
which is a Naxalwadi Area. Therefore, keeping in
view the sensitivity of the area, it was necessary
for each personnel to take permission for leaving
the camp. Despite applicability (implementation)
of these orders, Force No.901342841 Constable
Diler Singh, on 22.06.2001 at about 1330 hours,
went outside the Camp without permission of any
competent officer, which is against the discipline
of force and good orders.
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Article – 2
That, Force No. 901342841 Constable Diler
Singh, on 22.06.2001 at about 1330 hours left
out from platoon No.7, Police Station Jinna Ram,
C/61, C.R.P.F. Narsapur, Medhak, Andhra
Pradesh, which is Naxalwadi Area, without
permission of any competent officer and after
going to the market, he consumed very much
liquor (wine) and quarrelled there with many
civilians. On receiving information about this at
Platoon, witness No.2,5 and Constable Nawaj
Ahmad brought him from the market under
influence of liquor at about 1500 hours. At about
1800 hours, witness No.4 with one Section
handed over it to C.H.M. in Company
Headquarters. Thereafter at about 2030 hours,
he was taken to .... Singa Reddy’s Civil Hospital,
where his medical examination was got
conducted. According to the medical certificate,
he had consumed liquor(wine). Therefore, the act
on his part is against the worthy orders and
discipline of the Force.”
13. The enquiry officer, as is vivid from the enquiry report,
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found that all the witnesses had supported the fact that on
22.06.2001 the respondent had gone out of the camp and in
the market he had consumed liquor and quarrelled with the
local persons, and accordingly has proceeded to hold as
under:-
“Thus, it is also proved that on 22.06.2001,
constable Diler Singh came out of his platoon
post without obtaining permission from any one
and consumed liquor, thereafter, he quarrelled
with the local persons in the market and besides
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above, he by using indecent language hurled
abuses to the personnel present in the camp and
on reaching at company headquarters Narsapur
against CRPF personnel and officers, which is
totally against the conduct and behaviour of a
civilized and good constable.”
14. In this backdrop, the judgments of the Courts below
and that of the High Court are to be scrutinised. The trial
Court by placing reliance on the decisions in Ram Singh
Rai (supra) and Rattan Singh (supra) has opined that the
punishment of dismissal could not have been imposed on
the delinquent employee under Section 11(1) of the Act. The
first appellate Court while holding that the trial Court has
no territorial jurisdiction also reversed the finding which
was rendered in the context of Section 11(1) of the Act. In
this context, learned appellate Judge relied on the decision
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in Ghulam Mohd. Bhat (supra). The High Court, as is
evident, has not referred to the decision in Ghulam Mohd.
Bhat (supra) but has adverted to a different aspect which is
in the relam of proportionality.
15. It is submitted by Mr. Maninder Singh, learned
Additional Solicitor General for the appellants that the High
Court has not framed any substantial question of law under
Section 100 of the Code of Civil Procedure which is
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absolutely mandatory. It has further been submitted that
the High Court should have applied the ratio laid down by
this Court in Ghulam Mohd. Bhat (supra) which defines
the operational spectrum of Section 11(1) of the Act and also
not followed the decision in Akhilesh Kumar (supra) to
dislodge the judgment of the appellate Court.
16. Learned counsel for the respondent, per contra, would
support the judgment passed by the High Court on the
foundation that this High Court has ascribed adequate
reasons to come to the conclusion and, in any case, the
punishment of dismissal in the facts and circumstances is
too harsh and shocks the conscience.
17. First, we shall deal with the submission with regard to
framing of substantial question(s) of law. On a perusal of
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the judgment of the High Court, it is evident that it has not
framed any substantial question of law. The Court in
5
Santosh Hazari v. Purushottam Tiwari , has held that
the High Court cannot proceed to hear a second appeal
without formulating the substantial question of law involved
in the appeal and if it does so it acts illegally and in
abnegation or abdication of the duty cast on Court. The
5
(2001) 3 SCC 179
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existence of substantial question of law is the sine qua non
for the exercise of the jurisdiction under the amended
Section 100 of the Code. The said principle has been
reiterated in many a decision including the one in the
6
Govindaraju v. Mariamman which has been placed
reliance upon by Mr. Maninder Singh. In the said case it
has been laid down, the substantial question of law has to
be framed for such a formulation is the sine qua non for
exercise of power under Section 100 of the Code of Civil
Procedure
18. It is necessary to state here that the High Court while
admitting the second appeal should have framed the
substantial question(s) of law which would have been
adverted to at the time of final hearing. That is the
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command of the provision and has been clearly stated by
this Court in number of occasions. We may unhesitatingly
state that we do not remotely get a sprinkle of bliss by
ingeminating or repeating the same. It has been done
following the rigoristic concept of ‘duty for duty sake’ with
the great expectation that this would be the last one.
19. The core issue that emerges for consideration is
6
(2005) 2 SCC 500
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whether under Section 11(1) of the Act, punishment of
dismissal can be imposed. The controversy is no more res
integra . In Ghulam Mohd. Bhat (supra) while interpreting
Section 11 of the Act, it has been held thus:-
“5. A bare perusal of Section 11 shows that it
deals with minor punishment as compared to the
major punishments prescribed in the preceding
section. It lays down that the Commandant or
any other authority or officer, as may be
prescribed, may subject to any rules made under
the Act, award any one or more of the
punishments to any member of the Fore who is
found guilty of disobedience, neglect of duty or
remissness in the discharge of his duty or of
other misconduct in his capacity as a member of
the Force. According to the High Court the only
punishments which can be awarded under this
Section are reduction in rank, fine, confinement
to quarters and removal from any office of
distinction or special emolument in the Force. In
our opinion, the interpretation is not correct,
because the section says that these punishments
may be awarded in lieu of, or in addition to,
suspension or dismissal.
JUDGMENT
6. The use of the words “in lieu of, or in addition
to, suspension or dismissal”, appearing in
sub-section(1) of Section 11 before clauses (a) to
(e) shows that the authorities mentioned therein
are empowered to award punishment of dismissal
or suspension to the member of the Force who is
found guilty and in addition to, or in lieu thereof,
the punishment mentioned in clauses (a) to (e)
may also be awarded.”
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And again:-
“7. … It is, therefore, clear that section 11 deals
with only those minor punishments which may
be awarded in a departmental inquiry and a plain
reading thereof makes it quite clear that a
punishment of dismissal can certainly be
awarded thereunder even if the delinquent is not
prosecuted for an offence under Section 9 or
Section 10.”
20. We respectfully agree with the said view and opine that
under the scheme of the Act, in exercise of power under
Section 11(1) of the Act punishment of dismissal can be
imposed. As is seen from the impugned order, the High
Court, to reverse the conclusion of the first appellate Court,
has extensively quoted from the decision of the Calcutta
High Court rendered in Akhilesh Kumar (supra). Be it
stated that the charges levelled against the delinquent
officer therein was the same. The Division Bench of the
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Calcutta High Court, analysing the Act, especially Section
10(m) and various clauses of the CRPF Manual, came to
hold thus:-
“It is an admitted position from the factual matrix
of the departmental proceedings that the writ
petitioner/delinquent was posted in a camp. As
per rule of such positing in a camp/lines the
concerned personnel is not free to move as per
his choice even during the period when he is not
on actual duty. The discipline of a camp is
completely different in comparison with the
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posting of an individual in an office and or in
other places outside of the camp. It is true, by
rotation of 8 hours duty is allotted to the
respective personnel who are attached to the
camp and staying in the camp but that does not
mean that when he will not be in active duty, he
would be allowed to go outside of the camp
without prior permission. From the relevant
provision of Clauses 7.2 and 6.23 as already
quoted it appears that absence without leave or
permission from the camp would invite initiation
of judicial trial of the delinquent if there is a
serious and grave situation or otherwise a
departmental enquiry. Hence, finding of the
learned trial judge that as the delinquent/writ
petitioner was not on active duty, the aforesaid
clauses got no effect, is not appealing us for its
applicability to quash the order of dismissal.
However, from the aforesaid provision of
maintaining discipline while a personnel is
posted in a camp which requires a prior
permission to leave the camp even for a short
period from the Company Commander, we are of
the view that the charge under Article no.1 was
proved. Now, on the question of quantum of
punishment, namely, dismissal from service as
imposed on such charge, we are of the view that
as under clause 6.23 there is a provision for
initiation of the departmental enquiry and as per
decision only a minor punishment could be
imposed and as Section 10(m) of CRPF Act
provides the minor punishment issue in that
field, we are of the view that dismissal being a
major punishment should not have been passed
by the Disciplinary Authority.
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8. Considering all the issues, we are quashing
the order of dismissal as well as the order of
confirmation of such by the Appellate Authority
and remanding the matter back to the
Disciplinary Authority under the service
regulation of the delinquent to decide the
quantum of punishment as would be
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commensurating with the charge of misconduct
as admitted, which invites only minor
punishment.”
21. The aforesaid analysis reveals that the Division Bench
has clearly held that the delinquent employee, being a
member of the Force, could not have left the camp without
prior permission. It has also opined when a personnel is
posted in a camp, he is not free to move as per his choice
even during the period when he is not on duty. However, as
is manifest, the Division Bench has opined that the
imposition of dismissal as a punishment, which is a major
one, could not have been imposed by the disciplinary
authority. The said opinion has been expressed without
referring to the position of law that has been clearly laid
down in the case of Ghulam Mohd. Bhat (supra). Thus, the
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basic premise is erroneous. In the impugned order, the writ
court has, after reproducing the passage from Akhilesh
Kumar (supra), opined that the controversy is covered by
the judgment rendered by the High Court of Calcutta. It is
extremely significant to note that the learned Single Judge
has not even made an effort to appreciate the decision in
Ghulam Mohd. Bhat (supra) though the same was relied
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upon by the learned first appellate Judge. Thrust of
reasoning of the first appellate court was that a major
punishment of dismissal could be imposed in law. It is quite
unfortunate that the High Court has dislodged the finding
without any analysis but reproducing a passage from the
Calcutta High Court which had not referred to the ratio laid
down by a two-Judge Bench of this Court in Ghulam Mohd.
Bhat’s case. Thus, the conclusion arrived at by the High
Court is wholly unsustainable.
22. The learned counsel for the respondent has submitted
that even if the charges have been proven, the punishment
of dismissal in the obtaining factual matrix is absolutely
harsh and shocking to the conscience. It is his submission
that the punishment is disproportionate. The respondent
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was a part of the disciplined force. He has left the campus
without prior permission, proceeded to the market,
consumed liquor and quarrelled with the civilians. It has
been established that he had consumed liquor at the market
place, and it has been also proven that he has picked up
quarrel with the civilians. It is not expected of a member of
the disciplined force to behave in this manner. The
submission, as has been noted earlier, is that the
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punishment is absolutely disproportionate. The test of
proportionality has been explained by this Court in Om
7
Kumar and others v. Union of India , Union of India
8
and another v. G. Ganayutham and Union of India v.
9
Dwarka Prasad Tiwari . In Dwarka Prasad Tiwari
(supra), it has been held that unless the punishment
imposed by the disciplinary authority or the appellate
authority shocks the conscience of the court/tribunal, there
is no scope for interference. When a member of the
disciplined force deviates to such an extent from the
discipline and behaves in an untoward manner which is not
conceived of, it is difficult to hold that the punishment of
dismissal as has been imposed is disproportionate and
shocking to the judicial conscience.
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23. We are inclined to think so as a member of the
disciplined force, the respondent was expected to follow the
rules, have control over his mind and passion, guard his
instincts and feelings and not allow his feelings to fly in
fancy. It is not a mild deviation which human nature would
grant some kind of lenience. It is a conduct in public which
7
(2001) 2 SCC 386
8
(1997) 7 SCC 463
9
(2006) 10 SCC 388
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has compelled the authority to think and, rightly so, that the
behaviour is totally indisciplined. The respondent, if we
allow ourselves to say so, has given indecent burial to
self-control, diligence and strength of will-power. A
disciplined man is expected, to quote a few lines from
Mathew Arnold:-
“We cannot kindle when we will
The fire which in the heart resides,
The spirit bloweth and is still,
In mystery our soul abides:
But tasks in hours of insight will’d
Can be through hours of gloom fulfill’d.
Though the context is slightly different, yet we have felt, it is
worth reproducing.
24. Consequently, the appeal is allowed, the judgment and
decree passed by the High Court is set aside and that of the
first appellate court is restored and the suit instituted by the
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respondent/plaintiff stands dismissed. In the facts and
circumstances of the case, there shall be no order as to
costs.
.............................J.
[Dipak Misra]
..........................., J.
[N.V. Ramana]
New Delhi;
June 30, 2016
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