Learned counsel appearing for Komal Ram and Jitendra Nath
Singh had raised another contention relating to the power of the
High Court to dispense with the inquiry under clause (b) of the
second proviso to Article 311 of the Constitution. The contention is
that this power exclusively vests with the Governor alone who has
to satisfy himself and record in writing the reasons why it is not
reasonably practical to hold an inquiry. Reliance was placed on
the following observations in the Constitutional Bench judgment of
this Court in State of West Bengal v. Nripendra Nath Bagchi,11:
“...within the exercise of the control vested in the High
Court, the High Court can hold enquiries, impose
punishments other than dismissal or removal, subject
however to the conditions of service, to a right of
appeal if granted by the conditions of service, and to
the giving of an opportunity of showing cause as
required by clause (2) of Article 311 unless such
opportunity is dispensed with by the Governor acting
under the provisos (b) and (c) to that clause.”
17. The contention misreads the ratio in Nripendra Nath Bagchi
(supra), which rather holds to the contrary. Interpreting Articles
233 and 235 of the Constitution, and on the aspect of ‘control’ of
the High Court in matters relating to the subordinate judiciary in
Nripendra Nath Bagchi (supra), it was held:
“13. […] the history which lies behind the enactment of
these Articles indicate that “control” was vested in the
11 AIR 1966 SC 447
High Court to effectuate a purpose, namely, the
securing of the independence of the subordinate
judiciary and unless it included disciplinary control as
well the very object would be frustrated. This aid to
construction is admissible because to find out the
meaning of a law, recourse may legitimately be had to
the prior state of the law, the evil sought to be removed
and the process by which the law was evolved. The
word “control”, as we have seen, was used for the first
time in the Constitution and it is accompanied by the
word “vest” which is a strong word. It shows that the
High Court is made the sole custodian of the control
over the judiciary. Control, therefore, is not merely the
power to arrange the day to day working of the court
but contemplates disciplinary jurisdiction over the
presiding Judge. Article 227 gives to the High Court
superintendence over these courts and enables the
High Court to call for returns etc. The word “control” in
Article 235 must have a different content. It includes
something in addition to mere superintendence. It is
control over the conduct and discipline of the judges.
This conclusion is further strengthened by two other
indications pointing clearly in the same direction. The
first is that the order of the High Court is made subject
to an appeal if so provided in the law regulating the
conditions of service and this necessarily indicates an
order passed in disciplinary jurisdiction. Secondly, the
words are that the High Court shall “deal” with the
judge in accordance with his rules of service and the
word “deal” also points to disciplinary and not mere
administrative jurisdiction.
14. Articles 233 and 235 make a mention of two distinct
powers. The first is power of appointments of persons,
their postings and promotion and the other is power of
control. In the case of the District Judges,
appointments of persons to be and posting and
promotion are to be made by the Governor but the
control over the District Judge is of the High Court. We
are not impressed by the argument that the term used
is “District Court” because the rest of the Article clearly
indicates that the word “court” is used compendiously
to denote not only the court proper but also the
presiding Judge. The latter part of Article 235 talks of
the man who holds the office. In the case of the judicial
service subordinate to the District judge the
appointment has to be made by the Governor in
accordance with the rules to be framed after
consultation with the State Public Service Commission
and the High Court but the power of posting, promotion
and grant of leave and the control of the courts are
vested in the High Court. What is vested includes
disciplinary jurisdiction. Control is useless if it is not
accompanied by disciplinary powers. It is not to be
expected that the High Court would run to the
Government or the Governor in every case of
indiscipline however small and which may not even
require the punishment of dismissal or removal. These
Articles go to show that by vesting “control” in the High
Court the independence of the subordinate judiciary
was in view. This was partly achieved in the
Government of India Act, 1935 but it was given effect
to fully by the drafters of the present Constitution. This
construction is also in accord with the Directive
Principles in Article 50 of the Constitution which reads:
“50. The State shall take steps to separate
the judiciary from the executive in the public
services of the State”.
xx xx xx
17. […] That the Governor appoints District Judges and
the Governor alone can dismiss or remove them goes
without saying. That does not impinge upon the control
of the High Court. It only means that the High Court
cannot appoint or dismiss or remove District Judges. In
the same way the High Court cannot use the special
jurisdiction conferred by the two provisos. The High
Court cannot decide that it is not reasonably
practicable to give a District Judge an opportunity of
showing cause or that in the interest of the security of
the State it is not expedient to give such an
opportunity. This the Governor alone can decide. That
certain powers are to be exercised by the Governor
and not by the High Court does not necessarily take
away other powers from the High Courts. The provisos
can be given their full effect without giving rise to other
implications. It is obvious that if a case arose for the
exercise of the special powers under the two provisos,
the High Court must leave the matter to the Governor.
In this connection we may incidentally add that we
have no doubt that in exercising these special powers
in relation to inquiries against District Judges, the
Governor will always have regard to the opinion of the
High Court in the matter. This will be so whoever be
the inquiring authority in the State. But this does not
lead to the further conclusion that the High Court must
not hold the enquiry any more than that the Governor
should personally hold the enquiry.”
18. The expression/words “within the exercise of the control vested in
the High Court, the High Court can hold enquiries, impose
punishments other than dismissal or removal, subject however to
the conditions of service, to a right of appeal if granted by the
conditions of service, and to the giving of an opportunity of
showing cause as required by clause (2) of Article 311 unless
such opportunity is dispensed with by the Governor acting under
the provisos (b) and (c) to that clause” is not to deny the High
Court the authority to decide whether conditions for invoking
clause (b) of the second proviso to Article 311(2) are satisfied, but
recognises that the resolution and recommendation of dismissal,
removal or reduction in rank or for dispensing with the inquiry in
terms of clause (b) [also clause (c)] of the second proviso to
Article 311(2) would require an order of the Governor. The
observations do not hold that the Governor, and not the High
Court, is vested with the jurisdiction and is the competent authority
to decide whether the inquiry should be dispensed with upon
recording of satisfaction in terms of clause (b) of the second
proviso to Article 311(2) of the Constitution. The decision refers to
Article 235 of the Constitution and states that the control vests
with the High Court, albeit order of appointment, dismissal or
removal is passed and made in the name of the Governor who
passes the formal order be it a case of appointment, dismissal or
removal. This is clear from the last portion of paragraph 17 in
Nirpendra Nath Bagchi (supra) which records “that the Governor
will always have regard to the opinion of the High Court in the
matter. This will be the inquiring authority in the State. But this
does not lead to the further conclusion that the High Court must
not hold the enquiry any more than that the Governor should
personally hold the enquiry.”
This legal position with reference to Articles 233 to 236 and
‘control’ of the High Court is beyond doubt as was explained in
Ajit Kumar v. State of Jharkhand12 in the following words:
“15. The next contention raised by the appellant was
that the aforesaid power under Article 311(2)(b) of the
Constitution could not have been invoked by the High
Court. The aforesaid submission also cannot be
accepted in view of the fact that a Subordinate Judge is
also a Judge within the meaning of the provision of
Article 233 of the Constitution of India read with the
provisions of Articles 235 and 236 of the Constitution of
India.
12 (2011) 11 SCC 458
16. Article 233 clearly lays down that appointments and
promotions of District Judges in any State are to be
made by the Governor of the State in consultation with
the High Court exercising jurisdiction in relation to such
State. The aforesaid provision, like Articles 234 to 236,
has been incorporated in the Constitution of India inter
alia to secure the independence of the judiciary from
the executive and the same deals with the scope of
separation of power of the three wings of the State.
17. It cannot be disputed that the power under the
aforesaid articles [Articles 233-236] is to be exercised
by the Governor in consultation with the High Court.
Under the scheme of the Indian Constitution the High
Court is vested with the power to take decision for
appointment of the subordinate judiciary under Articles
234 to 236 of the Constitution. The High Court is also
vested with the power to see that the high traditions
and standards of the judiciary are maintained by the
selection of proper persons to run the District Judiciary.
If a person is found not worthy to be a member of the
judicial service or it is found that he has committed a
misconduct he could be removed from the service by
following the procedure laid down. Power could also be
exercised for such dismissal or removal by following
the preconditions as laid down under Article 311(2)(b)
of the Constitution of India. Even for imposing a
punishment of dismissal or removal or reduction in
rank, the High Court can hold disciplinary proceedings
and recommend such punishments. The Governor
alone is competent to impose such punishment upon
persons coming under Articles 233-235 read with
Article 311(2) of the Constitution of India. Similarly,
such a power could be exercised by the High Court to
dispense with an enquiry for a reason to be recorded in
writing and such dispensation of an enquiry for valid
reasons when recommended to the Governor, it is
within the competence of the Governor to issue such
orders in terms of the recommendation of the High
Court in exercise of power under Article 311(2)(b) of
the Constitution of India.” (emphasis supplied)
REPORTABLE
IN THE SUPREME COURT OF INDIA
CIVIL APPELLATE JURISDICTION
CIVIL APPEAL NO. 3105 OF 2017
HARI NIWAS GUPTA Vs STATE OF BIHAR
SANJIV KHANNA, J.
Dated:NOVEMBER 08, 2019.