V.M. Karunakaran v. Zamorin Raja of Calicut & Others

# **IN THE HIGH COURT OF KERALA AT ERNAKULAM** ## **PRESENT** **THE HONOURABLE MR.JUSTICE C.T.RAVIKUMAR** **&** ## **THE HONOURABLE MR.JUSTICE N.NAGARESH** **WEDNESDAY, THE 25TH DAY OF SEPTEMBER 2019 / 3RD ASWINA, 1941** ## **WP(C).No.2686 OF 2019(I)** ## **PETITIONER:** **V.M. KARUNAKARAN AGED 56 YEARS S/O.GOVINDA MENON, RESIDING AT GOVINDAM, KUTTIKATTIL HOUSE, P.O.FEROOK COLLEGE, KOZHIKODE.** **BY ADV. SMT.JAYASREE K.P.** ## **RESPONDENTS:** - **1 ZAMORIN RAJA OF CALICUT, ZAMORIN CENTRAL DEVASWOM OFFICE, VALAYANAD.P.O., KOMMERI, KOZHIKODE-673007.** - **2 THE MALABAR DEVASWOM BOARD, HOUSEFED COMPLEX, ERANHIPALAM.P.O., KOZHIKODE-673006, REPRESENTED BY ITS COMMISSIONER.** - **3 THE COMMISSIONER, THE MALABAR DEVASWOM BOARD, HOUSEFED COMPLEX, ERANHIPALAM.P.O., KOZHIKODE-673006.** - **4 SANKARAVARMA RAJA,** **DEVASWOM INSPECTOR, ZAMORIN CENTRAL DEVASWOM OFFICE, VALAYANAD.P.O., KOMMERI, KOZHIKODE-673007.** **R1 BY ADV. SRI.M.P.SREEKRISHNAN R1 BY ADV. SRI.A.MUHAMMED MUSTHAFA R4 BY ADV. SRI.P.JERIL BABU R2, R3 BY ADV.R.LAKSHMI NARAYAN, SC, MDB** **THIS WRIT PETITION (CIVIL) HAVING BEEN FINALLY HEARD ON 09.07.2019, THE COURT ON 25.09.2019 DELIVERED THE FOLLOWING:** **WP(C) No.2686 OF 2019(I)** **2** ## **[CR]** **J U D G M E N T** ~ ~ ~ ~ ~ ~ ~ ~ ~ _Dated this the 25[th] day of September, 2019_ ## _**Nagaresh, J.**_ The writ petition has been filed seeking to direct the 1[st] respondent to reinstate the petitioner in service forthwith treating his suspension period as service without any break and to direct respondents 2 and 3 to conduct a full-fledged enquiry in respect of the allegations raised. 2. The petitioner joined service under the Zamorin Central Devaswom in 1990. He was appointed as Administrative Officer of Zamorin Central Devaswom in 2007. While working so, on 26.12.2017, the Bandarams of **3** ## **WP(C) No.2686 OF 2019(I)** Alathiyur Perumthrikkovil, Tirur Taluk were opened and counted under the supervision of the 4[th] respondent - Devaswom Inspector. The Central Devaswom Office soon thereafter received a complaint alleging misappropriation of the currency subjected to counting. The complaints were received along with two CDs through post. The petitioner being Administrative Officer, perused the complaint. Taking into account the gravity of the allegations involved, the petitioner forwarded the complaint to the 1[st] respondent - Trustee of the Devaswom along with a note. 3. The petitioner states that he has done so _bona fide_ for facilitating the Trustee to take appropriate decision in the matter. But, to the surprise of the petitioner, he was issued with Ext.P1 show-cause notice dated 28.03.2018 from the 1[st] respondent alleging that by forwarding the complaint along with a note, the petitioner acted with prejudice and haste. The petitioner submitted Ext.P2 explanation dated 02.04.2018. By Ext.P3 letter dated **WP(C) No.2686 OF 2019(I)** **4** 03.04.2018, the petitioner was informed that his explanation is not satisfactory. Ext.P3 required the petitioner to appear before a Committee. The petitioner appeared before the Committee. Subsequently, Ext.P4 show-cause notice dated 17.09.2018 was served on the petitioner stating that the Committee has found that the petitioner is guilty of concocting false allegation and complaint against the 4[th] respondent. The petitioner denied the allegation and submitted Ext.P5 explanation dated 22.09.2018. However, as per Ext.P6 order dated 29.09.2018, the petitioner was suspended pending domestic enquiry. An Advocate was appointed as enquiry officer on 10.10.2018. Ext.P9 charge memo dated 07.01.2019 was served on the petitioner. 4. The petitioner contended that the entire proceedings narrated above have been initiated by the 1[st] respondent - Trustee to protect the 4[th] respondent and it is not in the best of interest of the Devaswom. Ext.P9 charge memo is not in specific terms. The allegations of **WP(C) No.2686 OF 2019(I)** **5** misconduct lack clarity. No statement of allegations are enclosed with the charge memo. As the enquiry was not being proceeded with, the petitioner submitted Ext.P10 representation dated 14.01.2019 before the 3[rd] respondent - Commissioner requesting to cancel the charge memo and reinstate him in service. Ext.P10 did not yield any result. 5. The 1[st] respondent filed counter affidavit. The 1[st] respondent stated that the Malabar Devaswom Board has no jurisdiction to interfere with the internal administration of the temple. Power to appoint employees and initiate disciplinary proceedings, is vested with the Trustee. A complaint addressed to the 1[st] respondent was received by the petitioner. In the complaint, it was stated that while Bandarams were opened and counted on 26.12.2017, the 4[th] respondent committed theft. It was also stated that in spite of knowledge, the Executive Officer of the temple did not promptly act. When the 1[st] respondent received the complaint, he called for a report from the Executive Officer. **WP(C) No.2686 OF 2019(I)** **6** The Executive Officer and 25 employees gave a statement in writing revealing that they have not preferred any such complaint and that the contents of the complaint are false. 6. Still, an explanation was called for from the 4[th] respondent and the Executive Officer of the temple. The 4[th] respondent was removed from duty of counting of Bandarams. The counting was done by temple employees under strict supervision of an Inspector appointed by the Malabar Devaswom Board. Three officers deputed by SBI, Tirur Branch, office bearers of Kshetra Samithi, Melsanthi of the temple and devotees will be present during counting. There were about 35 persons witnessing counting. Commission of theft under such circumstances is inherently improbable. 7. However, the 1[st] respondent sent the CD containing CC TV footage to an IT expert. The expert reported that the CC TV footage does not disclose any theft. Therefore, the 1[st] respondent called for an explanation from **WP(C) No.2686 OF 2019(I)** **7** the petitioner. The explanation given by the petitioner and other relevant factors were examined by the Committee. The Committee, as per Ext.R1(l) dated 27.04.2018, reported that the petitioner was instrumental in creating the complaint deliberately with a sustained intention to destroy the credibility and reputation of the 4[th] respondent. As Ext.R1(l) and Ext.R1(n) reports of the Committee would _prima facie_ show that the petitioner has committed breach of trust and was instrumental in fabricating complaints, a disciplinary proceeding is warranted against the petitioner. Accordingly, Ext.P6 order of suspension was served on the petitioner. If the petitioner has any grievance in respect of the findings in the enquiry, he has a remedy by way of appeal under Section 49(2) of the Madras Hindu Religious and Charitable Endowments Act. A further appeal is also provided under Section 49(3) of the Act. The writ petition therefore lacks _bona fides_ and it is liable to be dismissed. 8. The petitioner filed reply affidavit and the 1[st] **WP(C) No.2686 OF 2019(I)** **8** respondent filed counter affidavit to the reply affidavit, reiterating their contentions. The petitioner filed a further additional affidavit. 9. The learned counsel for the petitioner urged various grounds for interfering with the disciplinary proceedings against the petitioner. It was pointed out that the disciplinary proceedings is nothing but victimisation for bringing out the irregularities being perpetrated in the temple. The disciplinary authority acted _mala fide_ . The entire enquiry from its very inception is vitiated by procedural irregularities. Unfairness on the part of disciplinary authority has also been alleged. The issuance of a vague charge sheet by itself is unfair, it was contended. 10. We do not propose to adjudicate on all such allegations since the sole issue of vagueness of charges, is sufficient to decide the legality of the disciplinary proceedings. 11. Ext.P9 memo of charges issued to the petitioner **WP(C) No.2686 OF 2019(I)** **9** ## reads as follows:- “മമാനനേജ മനജ നേടത്തുവമാൻ ഉനദ്ദേശശിക്കുന ഗമാർഹശിക അനനേന്വേഷണതശിൽ തമാങ്കൾജക്കെതശിജര ആനരമാപശിക്കുന കുറ്റങ്ങൾ തമാജഴെ പറയുനവയമാണജ. 1) നദേവസന്വേസ്വം ജജീവനേക്കെമാർക്കെജ നദേമാഷസ്വം വരുത്തുന വശിധതശിൽ തമാങ്കൾ നേടപടശി സന്വേജീകരശിച എനജ സമാമൂതശിരശി നദേവസന്വേസ്വം എകശി. ഓഫജീസർമമാരമായ ശജീ.പ്രകമാശൻ, ശജീ.രവശിവർമ്മ രമാജ, ശജീ.സതജീഷജ കുമമാർ, ശജീ.പരനമശന്വേരൻ, ശജീ.രമാനജഷജ, ശജീ.ഹരശിദേമാസൻ, ശജീ.നവണു നഗമാപമാലനമനനേമാൻ, ശജീ.ശശശികുമമാർ എനശിവർ മമാനനേജ മനജ ZR1402/18 ഉതരവശിനന്മേൽ നേശിനയമാഗശിച്ച അനനേന്വേഷണക്കെമ്മശിറ്റശി മുമമാജക ജമമാഴെശി നേൽകശിയശിട്ടുണജ. തമാങ്കളുജട പ്രസ് പ്രവർതശിജയ ഗുരുതരമമായ അച്ചടക്കെലസ്വംഘനേമമായശി കമാണുന. 2) ട്രസശിജയയുസ്വം ജജീവനേക്കെമാജരയുസ്വം തമ്മശിൽ ജതറ്റശിക്കെമാനസ്വം, ട്രസശിക്കെജ നദേമാഷസ്വം വരുത്തുന രജീതശിയശിൽ പ്രവർതശിയ് യുസ്വം ജചെയ്യുനതമായശി നദേവസന്വേസ്വം ഇൻജസ്പെക്ടർ ശജീ.ശങ്കരവർമ്മ, എകശി. ഓഫജീസർമമാരമായ ശജീ.രവശിവർമ്മ രമാജ, ശജീ.സതജീഷജ കുമമാർ, ശജീ.സതജീഷജ കുമമാർ, ശജീ.പരനമശന്വേരൻ, ശജീ.രമാനജഷജ, ശജീ.പശി.ശശശി എനശിവർ ZR1402/18 ഉതരവശിനന്മേൽ നേശിയമശിച്ച അനനേന്വേഷണ കമ്മജീഷൻ മുമമാജക ജമമാഴെശി നേൽകശിയശിട്ടുണജ. തമാങ്കളുജട പ്രസ് പ്രവർതശിജയയുസ്വം ഗുരുതരമമായ അച്ചടക്കെലസ്വംഘനേമമായശി കമാണുന. 3) ജജീവനേക്കെമാരുജട ഇടയശിൽ, തജന ഔനദേദമാഗശിക പദേവശി ദുരുപനയമാഗസ്വം ജചെയ. **WP(C) No.2686 OF 2019(I)** **10** തജന സന്വേജനേപക്ഷപമാതവസ്വം, എതശിർക്കുനവജര നദമാഹശിയ് യുസ്വം ജചെയ എനജ നദേവസന്വേസ്വം ഇൻജസ്പെക്ടർ ശജീ.ശങ്കരവർമ്മ, എകശി. ഓഫജീസർമമാരമായ ശജീ.ഹരശിദേമാസജ, ശജീ.പശി.എസജ.രനജഷജ, ശജീ.പശി.ശശശി, ശജീ.പ്രകമാശൻ, ആലതശിയൂർ നദേവസന്വേസ്വം ജജീവനേക്കെമാരമായ ശജീ.ഉനപന്ദ്രവർമ്മ, ശജീ.ഉണശികൃഷ്ണൻ, ശജീ.രമാമരമാജജ എനശിവർ ZR1402/18- ആസ്വം നേമർ ഉതരവശിനന്മേൽ നേശിയമശിച്ച കമ്മശിറ്റശി മുമമാജക ജമമാഴെശി നേൽകശിയശിട്ടുണജ. തമാങ്കളുജട പ്രസ് പ്രവർതശി ഗുരുതരമമായ അച്ചടക്കെ ലസ്വംഘനേവസ്വം, കൃതദവശിനലമാപവമമാണജ. 4) നദേവസന്വേസ്വം ഇൻജസ്പെക്ടർ ശജീ. ശങ്കരവർമ്മജയ്ക്കെതശിജര കള്ളപ്പരമാതശിയുണമാക് യുസ്വം, ആയതശിനേജ സശിരജീകരശിച ഗുരുതരമമായ നനേമാടജ തയമാറമാക്കെശി സമാമൂതശിരശിരമാജ സമക്ഷസ്വം അയയ് യുസ്വം ജചെയ എനജ നദേവസന്വേസ്വം സൂപ്രണജ പത്മജ, ജസൻട്രൽ നദേവസന്വേസ്വം ഇൻജസ്പെക്ടർ ശങ്കരവർമ്മ രമാജ, എകശി. ഓഫജീസർ ശജീ.മനനേമാജജ എനശിവർ ZR1402/18-ആസ്വം നേമർ ഉതരവശിനന്മേൽ നേശിനയമാഗശിച്ച പ്രമാഥമശികമാനനേന്വേഷണതശിൽ തമാങ്കൾ കുറ്റക്കെമാരനേമാജണന ജതളശിഞ്ഞതുമമാണജ. തമാങ്കളുജട പ്രസ് പ്രവർതശി ഗുരുതരമമായ അച്ചടക്കെലസ്വംഘനേവസ്വം, ഔനദേദമാഗശികപദേവശി ദുരുപനയമാഗസ്വം ജചെയലുമമായശി കമാണുന. 5) തമാങ്കളുസ്വം, ആലതശിയൂർ നദേവസന്വേസ്വം ജജീവനേക്കെമാരനേമായ ശജീ.രമാമകൃഷ്ണനസ്വം നചെർനജ ആലതശിയൂർ നക്ഷത്രതശിൽ സമാമതശിക തടശിപ്പുകൾ നേടതശി എനജ ആലതശിയൂർ നദേവസന്വേസ്വം ജജീവനേക്കെമാരമായ ശജീ.ഉനപന്ദ്രവർമ്മ, ശജീ.ഉണശികൃഷ്ണൻ, ശജീ.രമാമരമാജൻ എനശിവർ ZR1402/18 -ആസ്വം നേമർ **WP(C) No.2686 OF 2019(I)** **11** ആയശി നേശിനയമാഗശിച്ച കമ്മശിറ്റശിയുജട അനനേന്വേഷണതശിൽ ജമമാഴെശി നേൽകശിയശിട്ടുണജ. തമാങ്കളുജട പ്രസ് പ്രവർതശികൾ നക്ഷത്രതശിനേജ കടുത സമാമതശിക നേഷസ്വം വരുതശിയശിട്ടുണജ. തമാങ്കളുജട നമല്പറഞ്ഞ പ്രവർതശികൾ മൂലസ്വം മമാനനേജ മനശിനേജ തമാങ്കളശിൽ ഉള്ള വശിശന്വേമാസസ്വം നേഷജപ്പടശിരശിയ്ക്കുന.” A reading of the charges would show that, in respect of the alleged misconducts, even elementary details are not provided. Charge No.1 states that certain officers have given statement before preliminary enquiry committee that the petitioner has taken action which would adversely affect the Devaswom staff. What are such actions and when such deeds were committed, are absent in the charge sheet. In the second charge, it has been alleged that certain Devaswom officers and staff have deposed that the petitioner has acted in a manner to bring about mistrust among the trustees and employees. Here again, any particulars of the alleged misdeeds is absent. The date and time of commission of such acts are also absent. Charge **WP(C) No.2686 OF 2019(I)** ## **12** Nos.3 to 5 also similarly lack material particulars. In short, by Ext.P9 charge memo, the petitioner has been left to guess the charge against him from the statements/depositions given by others. Copies of such statements/depositions have not accompanied Ext.P9 charge memo. Nor does the charge memo is supported by any statement in support of the allegations. 12. The Apex Court has considered the legality of issuing such charge sheets in _**Surath Chandra**_ . _**Chakrabarty v. State of West Bengal** [(1970) 3 SCC 548]_ The Apex Court held that if a person is not told clearly and definitely what the allegations are on which the charges preferred against him are founded, he cannot possibly, by projecting his own imagination, discover all the facts and circumstances that may be in the contemplation of the authorities to be established against him. In _**Sawai Singh v. State of Rajasthan** [AIR 1986 SC 995]_ , the Apex Court held that the deficiencies which vitiate a vague charge sheet ## **WP(C) No.2686 OF 2019(I)** ## **13** cannot be allowed to be supplemented by recourse to evidence at a later stage. In a judgment of the Bombay High Court, Mr. Justice B.N.Srikrishna (as he then was) in _**Miraj Taluka Girni Kamgar Sangh v. The Manager, Shree Gajanan Weaving Mills, Sangh and Others** [1991 (2) CLR 714]_ held as follows:- _“An employee faced with a vague charge that he is guilty of a described type of misconduct, would be extremely hard put to defend himself against the charge unless he is informed such particulars as would enable him to given an effective reply thereto and demonstrate that the charges are false or, otherwise not acceptable. Scanning the chargesheet given to the petitioner in the present case, I am of the view that it can be used as a model for what a chargesheet ought not to be. In my Judgment, therefore, the chargesheet itself ought to have been quashed and struck down by the two Courts below on this very count.”_ ## In the said judgment, it was held that allegations with **WP(C) No.2686 OF 2019(I)** **14** sufficient precision and particulars so as to enable the employee to defend himself, is the barest requirement of a charge sheet consistent with principles of natural justice. 13. The object of requiring the employer to present a chargesheet with a degree of precision, containing a disclosure of the circumstances of the case which are alleged to constitute misconduct, is to enable the chargesheeted employee to have a real opportunity of defending himself. To ask the employee to defend himself against a general allegation of misconduct without specification of particulars denies to him an effective right of defending himself. An employee who is called upon to defend himself must know what he has to defend himself against. What the employee is to defend himself against has to be discernible from the chargesheet which is issued to him. Chargesheets of the kind involved in the present case are replete with a great potential of mischief because if such chargesheets were allowed to stand, it would be open **WP(C) No.2686 OF 2019(I)** **15** to the employer to lead any and every kind of evidence during the course of the departmental enquiry on the basis of vague and undefined allegations of misconduct. This would be a travesty of fairness and reasonableness and would lead to a grave miscarriage of justice. The requirement that the chargesheet must be precise and must contain a statement of imputations constituting the foundation of misconduct is a basic principle of natural justice. Natural justice in a disciplinary enquiry must mean that the employee must have notice of the charges, first and foremost. This is a fundamental stipulation the noncompliance of which would vitiate the enquiry. 14. Ext.P9 charge memo lacks material particulars, rendering itself vague. By Ext.P9, the petitioner has been left to guess and assume from statements not supplied to him, the facts constituting his alleged misconducts. Ext.P9 as a charge memo, cannot stand the scrutiny of law. Though the 1[st] respondent has sought to permit him to issue **WP(C) No.2686 OF 2019(I)** **16** supplementary imputation of charges, we are not inclined to grant such permission at this stage of the writ proceedings. 15. In view of the above, we are of the definite opinion that the disciplinary proceedings against the petitioner in pursuance of Ext.P9 charge memo would definitely violate the principles of natural justice. In the circumstances, Ext.P9 charge memo and consequential proceedings are set aside. Writ petition is disposed of as above. Sd/- **C.T.RAVIKUMAR, JUDGE** Sd/- **N. NAGARESH, JUDGE** aks/10.07.2019 ## **WP(C) No.2686 OF 2019(I)** ## **17** ## **APPENDIX** ## **PETITIONER'S EXHIBITS:** **EXHIBIT P1 THE PHOTOCOPY OF THE SHOW CAUSE NOTICE DATED 28.3.2018.** **EXHIBIT P2 THE PHOTOCOPY OF THE EXPLANATION DATED 2.4.2018, SUBMITTED BY THE PETITIONER.** **EXHIBIT P3 THE PHOTOCOPY OF THE COMMUNICATION DATED 3.4.2018.** **EXHIBIT P4 THE PHOTOCOPY OF THE SHOW CAUSE NOTICE DATED 17.9.2018.** **EXHIBIT P5 THE PHOTOCOPY OF THE EXPLANATION DATED 22.9.2018.** - **EXHIBIT P6 THE PHOTOCOPY OF THE SUSPENSION ORDER DATED 29.9.2018.** - **EXHIBIT P7 THE PHOTOCOPY OF THE LETTER DATED 4.10.2018.** - **EXHIBIT P8 THE PHOTOCOPY OF THE COMMUNICATION DATED 10.10.2018.** - **EXHIBIT P9 THE PHOTOCOPY OF THE CHARGE MEMO DATED 7.1.2019.** - **EXHIBIT P10 THE PHOTOCOPY OF THE REPRESENTATION DATED 14.1.2019.** - **EXHIBIT P13 THE PHOTOCOPY OF THE LETTER DATED 29.05.2019 SUBMITTED BY THE PETITINER** - **EXT.P14 THE PHOTOCOPY OF THE PROCEEDINGS OF THE ENQUIRY FROM 16.02.2019 TO 13.06.2019** **EXHIBIT P13 THE PHOTOCOPY OF THE LETTER DATED 29.5.2019 SUBMITTED BY THE PETITIONER.** **WP(C) No.2686 OF 2019(I)** **18** **EXHIBIT P14 THE PHOTOCOPY OF PROCEEDINGS OF THE ENQUIRY FROM 16.2.2019 TO 13.6.2019. EXHIBIT P15 THE PHOTOCOPY OF THE REQUEST LETTER DATED 13.6.2019, SUBMITTED BY THE PETITIONER. EXHIBIT P16 THE PHOTOCOPY OF NOTE PUT UP BY THE PETITIONER, TO ZAMORIN RAJA FORWARDING CD AND COMPLAINT RECEIVED.** **RESPONDENT'S EXHIBITS:** **R1(A) TRUE COPY OF THE COMPLAINT, DTD NIL.** **R1(B) TRUE COPY OF THE STATEMENT DTD 22.3.2018.** **R1(C) TRUE COPY OF THE ORDER DTD 23.3.2018.** **R1(D) TRUE COPY OF THE ORDER DTD 23.3.2018 SEEKING EXPLANATION FROM THE EXECUTIVE OFFICER OF THE TEMPLE.** **R1(E) TRUE COPY OF THE EXPLANATIONS SUBMITTED BY THE 4TH RESPONDENT DTD 24.3.2018.** **R1(F) TRUE COPY OF THE EXPLANATIONS SUBMITTED BY THE EXECUTIVE OFFICER, DTD 24.3.2018.** **R1(G) TRUE COPY OF THE ORDER DTD 26.3.2018 ISSUED BY THE 1ST RESPONDENT.** **R1(H) TRUE COPY OF THE REPORT DTD 27.3.2018SUBMITTED BY THE IT EXPERT.** **R1(I) TRUE COPY OF THE ORDER SEEKING EXPLANATION FROM THE PETITIONER DTD 28.3.2018.** **R1(J) TRUE COPY OF THE ORDER DTD 3.4.2018.** **RI(K) TRUE COPY OF THE ORDER DTD 3.4.2018.** **R1(L) TRUE COPY OF THE REPORT OF THE COMMITTEE DTD 27.4.2018.** **R1(M) TRUE COPY OF THE ORDER DTD 3.5.2018.** **WP(C) No.2686 OF 2019(I)** **19** **R1(N) TRUE COPY OF THE REPORT DTD 31.8.2018.** **R1(O) TRUE COPY OF THE COMPLAINTS DTD 12.11.2018.** **R1(P) TRUE COPY OF THE COMPLAINTS DTD 30.1.2019.** **R1(Q) TRUE COPY OF THE ORDER DTD 4.7.2012.** **R1(R) TRUE COPY OF THE ENQUIRY REPORT DTD 7.12.2012.** **R1(S) TRUE COPY OF THE ORDER NO.A2-2256/12 OF DISMISSAL DTD 17.1.2013.**