C. Sathyanarayana v. Commandant, Central Industrial Security Force (CISF), CPT Cochin; Union of India through the Secretary, Ministry of Home Affairs; Deputy Inspector General (SZ), CISF; Inspector General, CISF SS HQRS, Chennai; Raveendra Singh, Enquiry Officer, CISF Unit, CPT Cochin

## **IN THE HIGH COURT OF KERALA AT ERNAKULAM** ## **PRESENT:** ## **THE HONOURABLE MRS. JUSTICE ANU SIVARAMAN** **MONDAY, THE 13TH DAY OF FEBRUARY 2017/24TH MAGHA, 1938** **WP(C).No. 14925 of 2013 (M) ----------------------------** **PETITIONER(S): ------------C.SATHYANARAYANA, S/O.SRINARAYANA, AGED 49 YEARS, CISF NO.854504602, HC/GD, CISF UNIT, CPT, COCHIN.** **BY ADV. SRI.A.DINESH RAO** **RESPONDENT(S):** **--------------** **1. THE COMMANDANT, CENTRAL INDUSTRIAL SECURITY FORCE, CPT COCHIN.** **2. THE DEPUTY INSPECTOR GENERAL (SZ), CENTRAL INDUSTRIAL SECURITY FORCE, MINISTRY OF HOME AFFAIRS, 'D' BLOCK, RAJAJI BHAVAN, BASANT NAGAR, CHENNAI-90.** **3. INSPECTOR GENERAL, CISF SS HQRS, CHENNAI.** **4. RAVEENDRA SINGH, ENQUIRY OFFICER, ASSISTANT COMMANDANT, CISF UNIT, CPT COCHIN.** **5. UNION OF INDIA, THROUGH THE SECRETARY, GOVERNMENT OF INDIA, MINISTRY OF HOME AFFAIRS, NEW DELHI.** **R1-R3 & R5 BY ADV. SRI.P.PARAMESWARAN NAIR,ASG OF INDIA R1-R5 BY ADV. SRI.T.SANJAY, CGC R1 -R3 & R5 BY ADV. SRI.T.V.VINU, CGC** **THIS WRIT PETITION (CIVIL) HAVING BEEN FINALLY HEARD ON 13-02-2017, THE COURT ON THE SAME DAY DELIVERED THE FOLLOWING:** **SKG** ## **WP(C).No. 14925 of 2013 (M)** ## **----------------------------** ## **APPENDIX** ## **PETITIONER(S)' EXHIBITS** **----------------------EXHIBIT P1 : TRUE COPY OF THE MEMORANDUM DT.13-12-2011 ISSUED BY THE 1ST RESPONDENT EXHIBIT P2 : TRUE COPY OF THE COMMUNICATION DATED 16-12-2011 ADDRESSED TO 1ST RESPONDENT. EXHIBIT P3 : TRUE COPY OF THE COMMUNICATION DT.22-12-2011 ISSUED BY THE 1ST RESPONDENT TO THE PETITIONER. EXHIBIT P4 : TRUE COPY OF THE WRITTEN STATEMENT OF DEFENCE SUBMITTED BY THE PETITIONER TO THE 1ST RESPONDENT AND DT.23-12-2011. EXHIBIT P5 : TRUE COPY OF THE COMMUNICATION DT.3-1-2012 ISSUED BY THE 1ST RESPONDENT AND ADDRESSED TO THE PETITIONER. EXHIBIT P6 : TRUE COPY OF THE COMMUNICATION DT.5-1-2012 ISSUED BY THE 1ST RESPONDENT AND ADDRESSED TO THE PETITIONER. EXHIBIT P7 : TRUE COPY OF THE COMMUNICATION DT.4-1-2012 ISSUED TO THE PETITIONER BY THE ENQUIRY OFFICER. EXHIBIT P8 : TRUE COPY OF THE COMMUNICATION DT.6-1-2012 ADDRESSED TO THE ENQUIRY OFFICER. EXHIBIT P9 : TRUE COPY OF THE PROCEEDINGS HELD ON 6-1-2012. EXHIBIT P10: TRUE COPY OF THE COMMUNICATION DT.10-1-2012 ADDRESSED TO THE PETITIONER. EXHIBIT P11: TRUE COPY OF THE COMMUNICATION DT.17-1-2012 ISSUED TO THE PETITIONER BY THE 1ST RESPONDENT . EXHIBIT P12: TRUE COPY OF THE ENQUIRY NOTICE DT.19-1-2012 ISSUED TO THE PETITIONER BY THE ENQUIRY OFFICER. EXHIBIT P13: TRUE COPY OF THE STATEMENT OF SRI.RAJEEV S.NAIR, ATLANTIC SHIPPING PRIVATE LIMITED KOCHI. EXHIBIT P14 :TRUE COPY OF THE ENQUIRY NOTICE DATED 28-1-2012. EXHIBIT P15 :TRUE COPY OF THE ENQUIRY NOTICE DATED 2-2-2012 ISSUED TO THE PETITIONER BY THE ENQUIRY OFFICER.** ## **WP(C).No. 14925 of 2013 (M)** **----------------------------** **EXHIBIT P16. COPY OF THE STATEMENT OF THE STATEMENT OF M.A.JOY SR. BRANCH MANAGER, ATLANTIC SHIPPING PRIVATE LIMITED.** **EXHIBIT P17. COPY OF THE ENQUIRY NOTICE DATED 3.2.12 ISSUED TO THE PETITIONER. EXHIBIT P18. COPY OF THE ENQUIRY NOTICE DATED 29.2.12 ISSUED BY THE ENQUIRY NOTICE DATED 29.2.12 ISSUED BY THE ENQUIRY OFFICER AND ADDRESSED TO THE PETITIONER. EXHIBIT P19. COPY OF THE COMMUNICATION DATED 1.3.12 SUBMITTED BY THE PETITIONER AND ADDRESSED TO THE ENQUIRY OFFICER. EXHIBIT P20. COPY OF THE COMMUNICATION DATED 10.3.12. EXHIBIT P21. COPY OF THE STATEMENT OF THE PETITIONER.** **EXHIBIT P22. COPY OF THE COMMUNICATION DATED 14.3.12 ADDRESSED TO THE ENQUIRY OFFICER. EXHIBIT P23. COPY OF THE COMMUNICATION ISSUED BY THE ENQUIRY OFFICER DIRECTING THE PETITIONER TO SUBMIT THE CONSENT/WILLING LETTER OF THE DEFENCE WITNESS. EXHIBIT P24. COPY OF THE COMMUNICATION DATED 15.3.12 SUBMITTED BY THE PETITIONER AND ADDRESSED TO THE ENQUIRY OFFICER. EXHIBIT P25. COPY OF THE COMMUNICATION DATED 16.3.12 ISSUED BY THE ENQUIRY OFFICER. EXHIBIT P26. COPY OF THE COMMUNICATION DATED 17.3.12 SUBMITTED BY THE PETITIONER BEFORE THE ENQUIRY OFFICER. EXHIBIT P27. COPY OF THE COMMUNICATION DATED 22.3.12 ISSUED TO THE PETITIONER BY THE ENQUIRY OFFICER. EXHIBIT P28. COPY OF THE COMMUNICATION DATED 23.3.12 SUBMITTED BY THE PETITIONER TO THE ENQUIRY OFFICER. EXHIBIT P29. COPY OF THE ENQUIRY REPORT DATED 27.4.12 HOLDING THE PETITIONER GUILTY OF THE CHARGES LEVELED AGAINST. EXHIBIT P30. COPY OF THE REPRESENTATION DATED 9.5.12 FILED BY THE PETITIONER. EXHIBIT P31. COPY OF THE FINAL REPORT FINAL ORDER DATED 16.5.12 ISSUED BY THE FIRST RESPONDENT AND ADDRESSED TO THE PETITIONER.** ## **WP(C).No. 14925 of 2013 (M)** **----------------------------** **EXHIBIT P32. COPY OF THE APPEAL DATED 25.5.12 ADDRESSED TO THE SECOND RESPONDENT.** **EXHIBIT P33. COPY OF THE ORDER DATED 3.8.2012 ISSUED BY THE SECOND RESPONDENT AND COMMUNICATED TO THE PETITIONER.** **EXHIBIT P34. A TRUE COPY OF THE REVISION FILED BEFORE THE THIRD RESPONDENT AND DATED 14.11.2012.** **EXHIBIT P35. COPY OF THE ORDER OF THE THIRD RESPONDENT REJECTING THE REVISION FILED BY THE PETITIONER.** **EXHIBIT P36. COPY OF THE ORDER DATED 3.7.12 ISSUED BY THE SECOND RESPONDENT TO CONSTABLE GANESH.** **EXHIBIT P37. COPY OF THE STATEMENT OF CONSTABLE MUJMULE ASLESH GANESH REGARDING THE INCIDENT.** **RESPONDENT(S)' EXHIBITS** **-----------------------** **EXHIBIT R1(A):TRUE COY OF THE LETTER DATED 25.10.2011 ALONG WITH E-MAIL DATED 15.10.2011** **EXHIBIT R1(B):TRUE COPY OF THE LETTER DATED 14.11.2011** **/TRUE COPY/** **P.S TO JUDGE** **SKG** ## **ANU SIVARAMAN, J.** ----------------------------------- ## W.P.(C) No.14925 of 2013 ------------------------------------ ## Dated this the 13[th] day of February, 2017 ## **J U D G M E N T** Challenge in this writ petition is against Ext.P29 enquiry report, Ext.P31 order of penalty, Ext.P33 appellate order and Ext.P35 order issued in revision as against the petitioner who was a Constable in the Central Industrial Security Force (CISF) at the relevant time. 2. Heard the learned counsel for the petitioner and the learned Central Government Counsel appearing for respondents 1 to 3 and 5. 3. It is submitted by the learned counsel for the petitioner that a preliminary enquiry was conducted against the petitioner and the petitioner was placed under suspension in anticipation of disciplinary proceedings. Ext.P1 memo of charges was issued alleging demand of illegal gratification from crew of a ship. On receipt of Ext.P1 memo of charges, petitioner had submitted Ext.P2 request seeking a copy of preliminary enquiry report which **W.P.(C) No.14925/2013** **2** was denied by Ext.P3. The petitioner submitted Ext.P4 statement of defence and an enquiry officer was appointed. The enquiry was posted on 23.01.2012 and one witness was examined and cross examined by the petitioner. Thereafter enquiry was posted on 30.01.2012 and PW2 was examined and cross examined. 4. On 03.02.2012, the petitioner was served with Ext.P17 notice intimating him that enquiry is posted to the next day at 10 a.m and that a court witness namely, C.Varghese of 'B' Coy, CISF unit, CPT Cochin is being examined at that time. The petitioner contends that he appeared and objected to the examination of the court witness on the ground that he is unconnected with the enquiry and is a sudden witness. However, the examination was conducted and the petitioner was unable to cross examine. Again on 29.02.2012, a notice was served on the petitioner stating that enquiry is posted to 02.03.2012 at 4 p.m and that court witness Inspector/Executive S.Jacob of 'A' Coy. CISF unit CPT Cochin is being examined. The petitioner preferred Ext.P19 complaint on 01.03.2012 stating that he is unaware as to why and how a court witness is being examined. It is stated that the court witness was the preliminary enquiry officer and that without a copy of preliminary enquiry report, petitioner would be unable to cross **W.P.(C) No.14925/2013** **3** examine the said witness. 5. However, disregarding the petitioner's objections, the said court witness was examined without cross examination. It is submitted that though several objections have been raised against the procedure of enquiry, they were all discarded and Ext.P29 enquiry report was submitted specifically relying on the evidence tendered by the court witness to find the petitioner guilty as charged. 6. On the basis of the said enquiry report, a punishment of reduction of pay by two stages for a period of one year which will have the effect of postponing future increment of pay was imposed on the petitioner by Ext.P31 order. The petitioner preferred a statutory appeal pointing out all the aspects including non supply of preliminary enquiry report, examination of court witnesses and lack of opportunity to cross examine them. However, Ext.P33 order was issued rejecting the appeal preferred by the petitioner. With regard to the specific points urged by the petitioner in his appeal, it is repeatedly stated in Ext.P33 that the enquiry officer conducted enquiry as laid down in the procedure and the petitioner had been given ample opportunity to defend his case. With regard to the specific argument that evidence of **W.P.(C) No.14925/2013** **4** court witness is not admissible, it is stated that “the enquiry officer may summon a person to tender evidence in an enquiry if his evidence is considered relevant”. With regard to the non supply of preliminary enquiry report, it is stated that the materials secured during preliminary enquiry cannot be the basis for imposing a penalty. However, it is stated that the averment of the appellant is not tenable as the appellant had been given ample opportunity to defend his case effectively which he availed by cross examining PWs 1 and 2. The specific claim raised that the complaints made before preliminary enquiry officer which were not available in the departmental enquiry as also the findings of the preliminary enquiry report and the evidence of the enquiry officer had been relied upon, has been completely ignored by the appellate authority, it is contended. 7. Learned counsel for the petitioner relies on Rule 36(16) of the Central Industrial Security Force Rules, 2001 to contend that there is no provision in the prescribed procedure for the examination of any court witness. Rule 36(16) reads as follows: “(16) If it shall appear necessary before the close of the case on behalf of the Disciplinary Authority, the Inquiring Authority may, in its discretion, allow the Presenting Officer to produce **W.P.(C) No.14925/2013** **5** evidence not included in the list given to the enrolled member of the Force or may itself call for new evidence or recall and re-examine any witness and in such case the enrolled member of the Force shall be entitled to have, if he demands it, a copy of the list of further evidence proposed to be produced and an adjournment of the enquiry for three clear days before the production of such new evidence, exclusive of the day of adjournment and the day to which the enquiry is adjourned. The Inquiring Authority shall give the enrolled member of the Force an opportunity of inspecting such documents before they are taken on the record. The Inquiring Authority may also allow the enrolled member of the Force to produce new evidence, if it is of the opinion that the production of such evidence is necessary, if the interests of justice. **Note.** - New evidence shall not be permitted or called for or any witness shall not be recalled to fill up any gap in the evidence. Such evidence may be called for only when there is an inherent lacuna of defect in the evidence which has been produced originally”. However, the valid grounds raised have not been considered at all either by the appellate or the revisionsal authorities, it is contended. 8. A counter affidavit has been filed on behalf of the respondents contending that the crew members who had been **W.P.(C) No.14925/2013** **6** harassed by the petitioner had given their statements before the preliminary enquiry officer. They were not available for examination and all efforts to summon them failed. Therefore, it is submitted that to prove the submission of the complaint against the petitioner, enquiry officer found it necessary to summon the preliminary enquiry officer. His testimony has been relied upon to show that such a complaint had been received as against the petitioner. This is the gist of the defence raised by the respondents in this case. 9. I have gone through the provisions of Rule 36 of Central Industrial Security Force Rules, 2001 which prescribe the procedure for imposition of major penalties. It is clear that an oral enquiry was deemed necessary in the petitioner's case. On an anxious scrutiny of the provisions contained in Rule 36, I do not find any provision which permits the enquiry officer to summon a witness of his own, to substantiate a charge against a delinquent employee. The enquiry officer is deemed to be an impartial referee in the disciplinary proceedings since his role is limited to deciding whether the charged officer is guilty as charged on the basis of the evidence produced before him. Sub rule 16 of Rule 36 provides that the enquiring authority may, in **W.P.(C) No.14925/2013** **7** its discretion, allow the presenting officer to produce new evidence on condition that the defence shall be granted three clear days before the production of such evidence to prepare itself. It is clear that the purpose of prescribing such exhaustive rules or procedure for conduct of enquiry is to see that fair play is maintained in the matter of imposition of penalty. 10. Learned counsel for the petitioner placed reliance on the decisions of the Apex Court in _**Krishna Chandra Tandon vs. The Union of India**_ (AIR 1974 Supreme Court 1589), _**Commissioner of Police, Delhi and others** vs._ _**Jai Bhagwan**_ ((2011) 6 SCC 376) and in _**Nirmala J.Jhala** vs._ _**State of Gujarat and another**_ (AIR 2013 Supreme Court 1513) to contend that the report of preliminary enquiry and the evidence recorded therein cannot be used in the departmental enquiry as no opportunity of cross examination is available to the delinquent at the stage of preliminary enquiry. It is stated by the Apex Court that the reasonable opportunity envisaged is an opportunity to deny guilt and establish innocence. It is therefore held that the principles of natural justice have to be strictly followed in the matter of disciplinary enquiries. Any material which is used against a delinquent employee should be put to him **W.P.(C) No.14925/2013** **8** before hand and he should be given a fair opportunity to cross examine all witnesses who depose in any manner as against him. A decision of this Court in _**Rappai** vs._ _**Group Commandant, C.I.S.F**_ (2001 (3) KLT 760) has also been relied on to contend that whatever materials were collected during preliminary enquiry would not be of any avail unless those materials are brought on record in the formal enquiry as evidence with opportunity to the delinquent employee to controvert those materials. The non consideration of the contentions raised by the delinquent employee is also serious illegality, it is contended. A decision of the Allahabad High Court in _**Ghirrao Srivastava** vs._ _**State of U.P. and others**_ (1975 (1) SLR 323) and also of the Tripura High Court in _**Union of India (Delhi) and another** vs._ _**Sri Kula Chandra Sinha**_ (AIR 1963 Tripura 20 (V 50 C 3) are also relied on in support of the contention that statements of witnesses recorded in earlier enquiry cannot be relied upon in the absence of an opportunity to cross examine the witness who seeks to prove those documents. 11. I have considered the contentions advanced on either side at considerable length. It is apparent that a proper opportunity to cross examine a court witness has definitely been **W.P.(C) No.14925/2013** **9** denied to the petitioner even if such court witness could have been examined by the enquiry officer, in view of the absence of any such provision contained in Rule 36 of the CISF Rules which prescribe the procedure for imposition of major penalties. 12. It is trite that where a procedure is prescribed for imposition of penalties, it is to be strictly complied with. The procedure prescribed only embodies the principles of natural justice which are liable to be complied with in disciplinary proceedings since delinquent employee is inherently in a position of disadvantage in any such proceedings. 13. In the instant case, the petitioner had taken the contentions regarding procedural violations in Ext.P30 reply submitted by him to the show cause notice. However, disregarding the said contentions, Ext.P31 order has been issued. While preferring Ext.P32 statutory appeal also, like contentions were repeatedly advanced by the petitioner. However, it is clear from a reading of Exts.P33 and P35 orders that the valid contentions raised by the petitioner have not gained proper consideration at the hands of the appellate and revisional authorities. **W.P.(C) No.14925/2013** **10** 14. An appeal from an order imposing penalty issued in disciplinary proceedings is a full appeal with respect to the procedure as well as conclusions in the enquiry. In the above view of the matter, the appellate authority, while considering Ext.P32 appeal, ought to have considered the clear contentions raised by the petitioner on the strength of Rule 36 of the CISF Rules. This has apparently not been done and the appeal was rejected stating that the “prescribed procedure had been followed in the enquiry”. Ext.P33 order is therefore vitiated by total want of application of mind. Though this aspect was highlighted by the petitioner in Ext.P34 revision, the same has also not received acceptance at the hands of the statutory authorities. In the above view of the matter, I am of the opinion that this is a fit case where the appellate authority should reconsider the legal contentions raised by the petitioner as against Ext.P29 enquiry report and Ext.P31 order imposing penalty, and pass a reasoned order after hearing the petitioner. To facilitate such reconsideration, Exts.P33 and P35 orders are set aside. It is directed that the petitioner shall be heard on Ext.P32 appeal and the appellate authority shall issue a fresh reasoned order taking note of all the contentions raised by the petitioner especially on **W.P.(C) No.14925/2013** **11** the strength of Rule 36(16) of the CISF Rules, within a period of two months from the date of receipt of a copy of this judgment. This writ petition is ordered accordingly. Sd/- **ANU SIVARAMAN JUDGE** smp