Full Judgment Text
1
Reportable
IN THE SUPREME COURT OF INDIA
CIVIL APPELLATE JURISDICTION
CIVIL APPEAL No.6717 OF 2008
UNION OF INDIA & ORS. .......APPELLANTS
VERSUS
R.P.SINGH ......RESPONDENT
J U D G M E N T
Dipak Misra, J.
Calling in question the legal defensibility of the
judgment and order dated 19.01.2007 passed by the High
Court of Delhi in W.P.(C)No.16104 of 2004 whereby it has
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annulled the judgment and order dated 28.06.2004 passed
by the Central Administrative Tribunal, Principal Bench, New
Delhi (for short “the tribunal”) in O.A.No.1977 of 2003 and
the order dated 19.08.2004 declining to entertain the
review, the present appeal has been preferred by special
leave.
2. The respondent while serving as an Assistant Engineer
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(Civil) in the Central Public Works Department (CPWD) was
proceeded in a departmental proceeding in respect of two
charges which read as follows:
"(a) 540 bags of cement were got issued for the
above stated work from the Central Stores on
31.3.97. The said Shri R.P.Singh allowed Shri
N.K.Sarin, Junior Engineer to issue 89 bags of
cement within 24 hours of receipt of the cement
from the Central Stores without giving any written
permission to the Junior Engineer and without
authenticating the said issue of cement, thereby
violating the instructions contained in Para 3(d) of
memorandum No.DGW/CON/67 dated 6.5.94.
(b) Out of the above stated lot of 540 bags of
cement of "Superplus Jaypee" brand, 82 bags of
cement were found short, which had been pilfered
with connivance of the said Shri R.P.Singh,
Assistant Engineer."
3. As the delinquent officer refuted the charges, an Inquiry
Officer was appointed to conduct the inquiry and in the
inquiry, he found the charges levelled against the delinquent
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officer were not proven and, accordingly, he submitted the
Inquiry Report. The disciplinary authority after expressing
the disagreement, called for a representation from the
respondent communicating the Inquiry Report as well as the
opinion for disagreement requiring him to submit his
explanation. The respondent submitted his explanation and
thereafter the disciplinary authority sought advice from the
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Union Public Service Commission (UPSC) by proposing to
impose penalty of reduction of pay by two stages in the time
scale of pay of the charged officer for a period of two years
without cumulative effect. The UPSC vide letter No.
F.3/144/2002-SI dated 20.11.02 gave the advice to impose
penalty of reduction of pay by two stages in the time scale of
pay of the charged officer for a period of two years without
cumulative effect. After obtaining the advice from the UPSC,
the disciplinary authority accepted the same, passed an
order of punishment and communicated the same to the
respondent along with the advice of UPSC.
4. The said order of punishment was assailed by the
respondent before the tribunal on many a ground and the
principal ground propounded was that the advice of the
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UPSC was not furnished to him before imposing the penalty
and, therefore, there had been violation of principles of
natural justice. The tribunal negatived the said stand on the
ground that no prejudice was caused to him.
5. Being dissatisfied with the said order, the respondent
preferred the writ petition and the High Court placing
reliance mainly on the decision in State Bank of India and
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others vs. D.C.Aggarwal and another came to hold that
non-supply of the copy of advice of UPSC at the pre-
decisional stage did tantamount to violation of principles of
natural justice for making effective representation. It further
observed that non-supply of such material could amount to
denial of fair opportunity of being heard. Being of this
opinion, the High Court directed as follows:-
"We direct the respondents to allow the petitioner
to make his representation in respect of the UPSC
advice, which was made available to him along
with the order dated 28.1.2003 imposing
punishment. The representation of the petitioner
be duly considered and the Disciplinary Authority
to take a decision afresh, taking into account the
representation with regard to the disciplinary
proceedings within a period of two months."
6. We have heard Mr.K.Radhakrishnan, learned counsel
assisted by Mr.W.A.Qadri and Ms.Rekha Pandey for the
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appellant and Mr.Vasudevan Raghavan, learned counsel for
the respondent.
7. At the very outset, we may state that the facts relating
to seeking of advice from UPSC and the stage of furnishing
the same to the delinquent employee are not in dispute.
Thus, the singular question that emanates for determination
1AIR 1993 SC 1197
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is whether the High Court is justified in issuing the directions
which have been reproduced hereinabove solely on the
ground that non-supply of the advice obtained by the
disciplinary authority from the UPSC and acting on the same
amounts to violation of principles of natural justice. Learned
counsel for the appellants has placed reliance on Rule 32 of
the Central Civil Services (Classification, Control and Appeal)
Rules, 1965 (for brevity “the CCS Rules”). The said Rule
reads as under:
"32. Supply of copy of Commission's advice .-
Whenever the Commission is consulted as
provided in these rules, a copy of the advice by
the Commission and where such advice has not
been accepted, also a brief statement of the
reasons for such non-acceptance, shall be
furnished to the Government servant concerned
along with a copy of the order passed in the case,
by the authority making the order."
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8. Relying upon the aforesaid Rule, it is contended that
when the only prescription in the Rule is that a copy of the
advice is to be furnished at the time of making of the order,
it is not obligatory in law to supply it prior to imposition of
punishment requiring a representation or providing an
opportunity of hearing to the delinquent officer. In support of
the said submission, our attention has been drawn to the
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decision in Union of India and another vs. T.V.Patel
wherein a two-Judge Bench, appreciating the Rule position,
has held as follows:
"Rule 32 of the Rules deals with the supply of a
copy of Commission's advice. Rules as read as it is
mandatory in character. Rule contemplates that
whenever a Commission is consulted, as provided
under the Rules, a copy of the advice of the
Commission and where such advice has not been
accepted, also a brief statement of the reasons for
such non-acceptance shall be furnished to the
Government servant along with a copy of the order
passed in the case, by the authority making the
order. Reading of the Rule would show that it
contemplates two situations; if a copy of advice is
tendered by the Commission, the same shall be
furnished to the government servant along with a
copy of the order passed in the case by the
authority making the order. The second situation
is that if a copy of the advice tendered by the
Commission has not been accepted, a copy of
which along with a brief statement of the reasons
for such non-acceptance shall also be furnished to
the government servant along with a copy of the
order passed in the case, by the authority making
the order. In our view, the language employed in
Rule 32, namely "along with a copy of the order
passed in the case, by the authority making the
order" would mean the final order passed by the
authority imposing penalty on the delinquent
government servant."
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9. Be it noted, in the said case, interpretation placed by
this Court under Article 320(3)(c) of the Constitution in
3
State of U.P. v . Manbodhan Lal Srivastava has been
2 (2007) 4 SCC 785
3 AIR 1957 SC 912
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placed reliance upon and, in that context, it has been opined
thus: -
"In view of the law settled by the Constitution
Bench of this Court in the case of Srivastava
(supra) we hold that the provisions of Article
320(3)(c) of the Constitution of India are not
mandatory and they do not confer any rights on
the public servant so that the absence of
consultation or any irregularity in consultation
process or furnishing a copy of the advice
tendered by the UPSC, if any, does not afford the
delinquent government servant a cause of action
in a court of law."
10. It is also necessary to mention here that the learned
Judges distinguished the pronouncements in D.C.Aggarwal
4
and another (supra) and MD, ECIL vs. B.Karunakar .
11. Mr.Vasudevan Raghavan, learned counsel for the
respondent has submitted that the said decision has been
treated as a per incuriam in Union of India and others vs.
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5
S.K.Kapoor in one aspect as it has not taken note of the
earlier decision in S.N.Narula vs. Union of India and
6
others . Learned counsel while clarifying the position has
submitted that the decision in Narulas's case has been
rendered on 30.01.2004 which is prior to the decision in
T.V.Patel's case though it has been reported later on.
4 (1993) 4 SCC 727
5 (2011) 4 SCC 589
6 (2011) 4 SCC 591
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12. In the case of S.N.Narula , the Court took note of the
fact that the proceedings therein were sent for information
of the UPSC and the UPSC had given the advice indicating
certain punishment and the said advice was accepted by the
disciplinary authority who, on that basis, had imposed
punishment. Thereafter the Court took note of the factual
score how the disciplinary authority had acted. We think it
seemly to reproduce the same: -
“ 3. It is to be noticed that the advisory opinion of
the Union Public Service Commission was not
communicated to the appellant before he was
heard by the disciplinary authority. The same was
communicated to the appellant along with final
order passed in the matter by the disciplinary
authority.”
After so stating, the two-Judge Bench proceeded to
opine thus: -
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"6. We heard the learned counsel for the appellant
and the learned counsel for the respondent. It is
submitted by the counsel for the appellant that the
report of the Union Public Service Commission was
not communicated to the appellant before the final
order was passed. Therefore, the appellant was
unable to make an effective representation before
the disciplinary authority as regards the
punishment imposed.
7. We find that the stand taken by the Central
Administrative Tribunal was correct and the High
Court was not justified in interfering with the
order. Therefore, we set aside the judgment of
the Division Bench of the High Court and direct
that the disciplinary proceedings against the
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appellant be finally disposed of in accordance with
the direction given by the Tribunal in Paragraph 6
of the order. The appellant may submit a
representation within two weeks to the disciplinary
authority and we make it clear that the matter
shall be finally disposed of by the disciplinary
authority within a period of 3 months thereafter."
13. We will be failing in our duty if we do not take note of
the submission of Mr.W.A.Qadri that the decision is not an
authority because the tribunal had set aside the order of the
disciplinary authority on the ground that it was a non-
speaking order. Be that as it may, when the issue was
raised before this Court and there has been an advertence to
the same, we are unable to accept the submission of Mr.
Qadri. The said decision is an authority for the proposition
that the advice of UPSC, if sought and accepted, the same,
regard being had to the principles of natural justice, is to be
communicated before imposition of punishment.
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14. In the case of S.K.Kapoor , the Court accepted the ratio
laid down in the case of T.V.Patel as far as the
interpretation of Article 320(3)(c) is concerned and, in that
context, it opined that the provisions contained in the said
Article 320(3)(c) of the Constitution of India are not
mandatory. While distinguishing certain aspects, the Court
observed as follows:
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"7. We are of the opinion that although Article
320(3)(c) is not mandatory, if the authorities do
consult the Union Public Service Commission and
rely on the report of the commission for taking
disciplinary action, then the principles of natural
justice require that a copy of the report must be
supplied in advance to the employee concerned so
that he may have an opportunity of rebuttal. Thus,
in our view, the aforesaid decision in T.V.Patel's
case is clearly distinguishable."
15. After so stating the two-Judge Bench opined that when
the disciplinary authority does not rely on the report of the
UPSC then it is not necessary to supply the same to the
employee concerned. However, when it is relied upon then
the copy of the same may be supplied in advance to the
employee concerned, otherwise, there would be violation of
the principles of natural justice. To arrive at the said
conclusion, reliance was placed upon the decision in
S.N.Narula's case. Proceeding further, the Court held:
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"9. It may be noted that the decision in
S.N.Narula's case (supra) was prior to the decision
in T.V.Patel's case(supra). It is well settled that if a
subsequent co-ordinate bench of equal strength
wants to take a different view, it can only refer the
matter to a larger bench, otherwise the prior
decision of a co-ordinate bench is binding on the
subsequent bench of equal strength. Since, the
decision in S.N.Narula's case (supra) was not
noticed in T.V.Patel's case(supra), the latter
decision is a judgment per incuriam. The decision
in S.N.Narula's case (supra) was binding on the
subsequent bench of equal strength and hence, it
could not take a contrary view, as is settled by a
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series of judgments of this Court."
16. Learned counsel for the appellant would contend that
the two-Judge Bench in S.K. Kapoor’s case could not
have opined that the decision in T.V. Patel’s case is
per incuriam. We have already noticed two facts
pertaining to S.N. Narula (supra), (i) it ws rendered on
31.1.2004 and (ii) it squarely dealt with the issue and
expressed an opinion. It seems to us that the judgment
in S.N. Narula’s case was not brought to the notice of
their Lordships deciding the lis in T.V. Patel (supra).
There cannot be a shadow of doubt that the judgment
in S.N. Narula (supra) is a binding precedent to be
followed by the later Division Bench. In this context, we
may fruitfully refer to the decision in Union of India v.
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Raghubir Singh (dead) by L. Rs. And Others ,
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wherein the Constitution Bench has held as follows: -
“We are of opinion that a pronouncement of law
by a Division Bench of this Court is binding on a
Division Bench of the same or a smaller number of
Judges, and in order that such decision be binding,
it is not necessary that it should be a decision
rendered by the Full Court or a Constitution Bench
of the Court”
17. In Indian Oil Corporation Ltd., v . Municipal
8
Corporation and Another , it has been observed that
7 (1989) 2 SCC 754
8 AIR 1995 SC 1480
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the Division Bench of the High Court in Municipal
9
Corpn., Indore v. Ratnaprabha Dhandha was
clearly in error in taking the view that the decision of
this Court in Municipal Corporation, Indore v.
10
Ratna Prabha was not binding on it. In doing so, the
Division Bench of the High Court did something which
even a later co-equal Bench of this Court did not and
could not do.
18. In Chandra Prakash and others v. State of U.P.
11
and another , the Constitution Bench has reiterated
the principle that has already been stated in Raghubir
Singh (supra).
19. Thus perceived, it can be stated with certitude that
S.N. Narula (supra) was a binding precedent and when
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the subsequent decision in T.V. Patel (supra) is
rendered in ignorance or forgetfulness of the binding
authority, the concept of per incurium comes into play.
20. In this regard, we may usefully refer to a passage from
12
A.R. Antulay v. R.S. Nayak , wherein Sabyasachi
9 1989 MPLJ 20
10 (1976) 4 SCC 622
11 (2002) 4 SCC 234
12 (1988) 2 SCC 602
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Mukharji, J. (as his Lordship then was) observed thus: -
“....‘Per incuriam’ are those decisions given in
ignorance or forgetfulness of some inconsistent
statutory provision or of some authority binding
on the court concerned, so that in such cases
some part of the decision or some step in the
reasoning on which it is based, is found, on that
account to be demonstrably wrong.”
At a subsequent stage of the said decision it has been
observed as follows: -
“.... It is a settled rule that if a decision has been
given per incuriam the court can ignore it.”
21. In Siddharam Satlingappa Mhetre v . State of
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Maharashtra and Ors . , while dealing with the issue of
‘per incuriam’, a two-Judge Bench, after referring to the
dictum in Bristol Aeroplane Co. Ltd. (supra) and
certain passages from Halsbury’s Laws of England and
Raghubir Singh (supra), has ruled thus:-
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“The analysis of English and Indian Law clearly
leads to the irresistible conclusion that not only
the judgment of a larger strength is binding on a
judgment of smaller strength but the judgment of
a co-equal strength is also binding on a Bench of
Judges of co-equal strength. In the instant case,
judgments mentioned in paragraphs 135 and 136
are by two or three judges of this Court. These
judgments have clearly ignored a Constitution
Bench judgment of this Court in Sibbia’s case
(supra) which has comprehensively dealt with all
the facets of anticipatory bail enumerated under
Section 438 of Code of Criminal Procedure
13 AIR 2011 SC 312 : ( 2011) 1 SCC 694
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Consequently, judgments mentioned in
paragraphs 135 and 136 of this judgment are per
incuriam.”
22. Testing on the aforesaid principles it can safely be
concluded that the judgment in T.V. Patel’s case is
per incuriam .
23. At this juncture, we would like to give our reasons for
our respectful concurrence with S.K. Kapoor (supra).
There is no cavil over the proposition that the language
engrafted in Article 320(3)(c) does not make the said
Article mandatory. As we find, in the T.V.Patel's case,
the Court has based its finding on the language
employed in Rule 32 of the Rules. It is not in dispute
that the said Rule from the very inception is a part of
the 1965 Rules. With the efflux of time, there has been
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a change of perception as regards the applicability of
the principles of natural justice. An Inquiry Report in a
disciplinary proceeding is required to be furnished to
the delinquent employee so that he can make an
adequate representation explaining his own
stand/stance. That is what precisely has been laid down
in the B.Karnukara's case. We may reproduce the
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relevant passage with profit: -
“Hence it has to be held that when the enquiry of-
ficer is not the disciplinary authority, the delin-
quent employee has a right to receive a copy of
the enquiry officer’s report before the disciplinary
authority arrives at its conclusions with regard to
the guilt or innocence of the employee with regard
to the charges levelled against him. That right is a
part of the employee’s right to defend himself
against the charges levelled against him. A denial
of the enquiry officer’s report before the disci-
plinary authority takes its decision on the charges,
is a denial of reasonable opportunity to the em-
ployee to prove his innocence and is a breach of
the principles of natural justice.”
24. We will be failing in our duty if we do not refer to
another passage which deals with the effect of non-
supply of the enquiry report on the punishment. It reads
as follows: -
“[v] The next question to be answered is what is
the effect on the order of punishment when the re-
port of the enquiry officer is not furnished to the
employee and what relief should be granted to
him in such cases. The answer to this question has
to be relative to the punishment awarded. When
the employee is dismissed or removed from ser-
vice and the inquiry is set aside because the re-
port is not furnished to him, in some cases the
non-furnishing of the report may have prejudiced
him gravely while in other cases it may have made
no difference to the ultimate punishment awarded
to him. Hence to direct reinstatement of the em-
ployee with back-wages in all cases is to reduce
the rules of justice to a mechanical ritual. The the-
ory of reasonable opportunity and the principles of
natural justice have been evolved to uphold the
rule of law and to assist the individual to vindicate
his just rights. They are not incantations to be in-
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voked nor rites to be performed on all and sundry
occasions. Whether in fact, prejudice has been
caused to the employee or not on account of the
denial to him of the report, has to be considered
on the facts and circumstances of each case.
Where, therefore, even after the furnishing of the
report, no different consequence would have fol-
lowed, it would be a perversion of justice to permit
the employee to resume duty and to get all the
consequential benefits. It amounts to rewarding
the dishonest and the guilty and thus to stretching
the
concept of justice to illogical and exasperating
limits. It amounts to an “unnatural expansion of
natural justice” which in itself is antithetical to jus-
tice.”
25. After so stating, the larger Bench proceeded to state
that the court/tribunal should not mechanically set
aside the order of punishment on the ground that the
report was not furnished. The courts/tribunals would
apply their judicial mind to the question and give their
reasons for setting aside or not setting aside the order
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of punishment. It is only if the court/tribunal finds that
the furnishing of report could have made a difference to
the result in the case then it should set aside the order
of punishment. Where after following the said
procedure the court/tribunal sets aside the order of
punishment, the proper relief that should be granted to
direct reinstatement of the employee with liberty to the
authority/ management to proceed with the enquiry, by
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placing the employee under suspension and continuing
the enquiry from that stage of furnishing with the
report. The question whether the employee would be
entitled to the back wages and other benefits from the
date of dismissal to the date of reinstatement, if
ultimately ordered, should invariably left to be decided
by the authority concerned according to law, after the
culmination of the proceedings and depending on the
final outcome.
26. We have referred to the aforesaid decision in extenso
as we find that in the said case it has been opined by
the Constitution Bench that non-supply of the enquiry
report is a breach of the principle of natural justice.
Advice from the UPSC, needless to say, when utilized as
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a material against the delinquent officer, it should be
supplied in advance. As it seems to us, Rule 32
provides for supply of copy of advice to the government
servant at the time of making an order. The said stage
was in prevalence before the decision of the
Constitution Bench. After the said decision, in our
considered opinion, the authority should have clarified
the Rule regarding development in the service
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jurisprudence. We have been apprised by
Mr.Raghavan, learned counsel for the respondent, that
after the decision in S.K.Kapoor's case, the
Government of India, Ministry of Personnel, PG &
Pensions, Department of Personnel & Training vide
Office Memorandum dated 06.01.2014 has issued the
following directions:
"4. Accordingly, it has been decided that in all
disciplinary cases where the Commission is to be
consulted, the following procedure may be adopted
:-
(i) On receipt of the Inquiry Report, the DA may
examine the same and forward it to the
Commission with his observations;
(ii) On receipt of the Commission's report, the DA
will examine the same and forward the same to the
Charged Officer along with the Inquiry Report and
his tentative reasons for disagreement with the
Inquiry Report and/or the advice of the UPSC;
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(iii) The Charged Officer shall be required to
submit, if he so desires, his written representation
or submission to the Disciplinary Authority within
fifteen days, irrespective of whether the Inquiry
report/advice of UPSC is in his favour or not.
(iv) The Disciplinary Authority shall consider the
representation of the Charged Officer and take
further action as prescribed in sub-rules 2(A) to (4)
of Rule 15 of CCS (CCA) Rules, 1965.
27. After the said Office Memorandum, a further Office
Memorandum has been issued on 05.03.2014, which
pertains to supply of copy of UPSC advice to the
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Charged Officer. We think it appropriate to reproduce
the same:
"The undersigned is directed to refer to this
Department's O.M. of even number dated
06.01.2014 and to say that it has been decided, in
partial modification of the above O.M. that a copy
of the inquiry report may be given to the
Government servant as provided in Rule 15(2) of
Central Secretariat Services (Classification,
Control and Appeal) Rules, 1965. The inquiry
report together with the representation, if any, of
the Government servant may be forwarded to the
Commission for advice. On receipt of the
Commission's advice, a copy of the advice may be
provided to the Government servant who may be
allowed to submit his representation, if any, on
the Commission's advice within fifteen days. The
Disciplinary Authority will consider the inquiry
report, advice of the Commission and the
representation(s) of the Government servant
before arriving at a final decision."
28. In our considered opinion, both the Office Memoranda
are not only in consonance with the S.K.Kapoor's case
but also in accordance with the principles of natural
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justice which has been stated in B.Karunakar's case.
29. In view of the aforesaid, we respectfully agree with the
decision rendered in S.K.Kapoor's case and resultantly
decline to interfere with the judgment and order of the
High Court. As a result, the appeal, being devoid of
merit, is dismissed without any order as to costs.
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..............................J
(DIPAK MISRA)
.............................J.
(N.V. RAMANA)
NEW DELHI;
MAY 22, 2014.
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