Holding

The termination of a probationer is punitive and invalid if it is founded on misconduct and the statutory notice‑and‑hearing procedure under Para 541 is not complied, thereby invoking Article 311(2) and rendering the order void.

Summary

Chandra Parkash Shahi, a constable recruited on probation under the U.P. Police Regulations, completed his two‑year probation without blemish but was terminated a year later by a simple notice under Rule 3 of the U.P. Temporary Government Servants (Termination of Service) Rules, 1975, following a preliminary enquiry into a quarrel among constables. The Tribunal held the termination punitive and set aside the order; the High Court reversed that decision. The Supreme Court examined whether a probationer acquires permanent status after probation, whether Article 311(2) of the Constitution applies, and whether the prescribed procedure of notice and opportunity to be heard under Para 541 of the Police Regulations was complied. It held that the appellant remained a probationer, that termination founded on misconduct without following the statutory procedure is punitive and falls within Article 311(2), and that the termination order was void for non‑compliance. Consequently, the appeal was allowed and the High Court judgment set aside.

Issues considered

Whether a probationer who has completed the statutory probation period acquires permanent status and can be terminated by simple notice.
Whether termination of a probationer on the basis of misconduct invokes the protection of Article 311(2) of the Constitution.
Whether the procedure prescribed in Para 541 of the U.P. Police Regulations (notice of grounds and opportunity to be heard) was complied.
Whether the termination order was punitive (founded on misconduct) or a simple termination for unsuitability.
Whether the termination order can be set aside for non‑compliance with the statutory procedure.

Legislation cited

Constitution of Indias. Article 311(2)

Subjects

ProbationTermination of serviceArticle 311(2)Punitive terminationProcedural fairnessTemporary government servantMotive vs foundationU.P. Police RegulationsPreliminary enquiry

Judgment

CHANDRA PARKASH SHAHI A
v.
STATE OF U.P. AND ORS.

APRIL 25, 2000

[S. SAGHIR AHMAD AND D.P. WADHWA, JJ.] B

Service Law :

U.P. Police Regulations-Para 541-Tennination-Service tenninated
for misconduct after completion of pmbation by giving simple notice and
holding a preliminary enquiry-Tribunal set asick tennination holding that
c
order was punitive-High Court upheld order of tennination-On appeal Held,
there was total non-compliance ofprocedure prescribed-Notice issued did not
intimate grounds of tennination nor any explanation obtained-Order oftenni-
nation set aside-U.P. Temporary Government Servants (Tennination of Serv-
ice Rule, 1975)-Rule 3. D
Probation-Acquisition ofpermanent status after successful completion
of probation-Pe1manent status can be acquired only after specific order of
confirmation and not merely by completion of probation.

Pmbation-Termination of Service-"Motive and foundation "-Order E
.. not punitive if employee found unsuitable for post after an enquiry-Order
punitive if general suitability of employee was not assessed but truth of allega-
tions regarding misconduct were investigated before passing the termination
order-Orderfounded on misconduct will not be a mere matter of "motive" and
cannot be upheld in law.
F
Constitution ofIndia-Article 311(2)-Temporary Government Servants
on probation entitled to protection-Courts can lift veil of an innocuously
worded order and find out whether it is as innocent as worded.

Appellant was recruited as Constable and was placed on probation
G
for two years, which he completed without any blemish. His services were
terminated by a n~tice issued under Rule 3 of the U.P. Temporary Govern-
ment Servants (Termination of Service) Rule, 1975, on the basis of a
preliminary enquiry, which was instituted to investigate into a quarrel
involving him and two other constables. The order of termination was set
aside by the Tribunal, which held it to be punitive in character though the H
529
530 SUPREME COURT REPORTS [2000] 3 S.C.R.
A order was innocuously worded. Respondents filed a writ petition against
the Tribunal's order. The High Court held that the termination order was
valid. Hence this appeal by the employee.
Appellant contended that his services could not have been termi-
nated, except by way of disciplinary action in accordance with the require-
B ments of Article 311(2) of the Constitution as he had got the status of a
permanent employee; and that although apparently the order of termina-
tion was innocuous, it was punitive in nature.
The respondents contended that the appellant was a temporary em-
ployee and his services could be terminated anytime by giving him one
C month's notice.

Allowing the appeal, the Court
HELD: 1. A perusal of Para 541 of the U.P. Police Regulations indi-
cates that the period of probation is two years. The Regulation is silent as to
D the maximum period beyond which the period of probation cannot be ex-
tended. In the absence of this prohibition, even if the appellant completed
two years of probationary period successfully and without any blemish,
his period of probation shall be treated to have been extended as 'perma-
nent' status can be acquired only by means of a specific order ·of
confirmation. [536-F-G]
E
State of U.P. v. Kaushal Kishore Shukla, (1991] 1 SCR 29; State of
Punjab v. Dharam Singh, (1968] 3SCR1; Pratap Singh v. U. T. of Chandigarh,
(1980] 1SCR487 and Municipal Corporation, Raipur v. Ashok Kumar Misra,
(1991] 2 SCR 320, relied on.
F 2. Temporary Government servants or probationers are also entitled
to the protection of Article 311(2) of the Constitution as the permanent
employees despite the fact that temporary government servants have no
right to hold the post and their services are liable to be terminated at any
time by giving them a month's notice without assigning any reason eitherin
G terms of the contract of service or under the relevant statutory rules
regulating the terms and conditions of such service. Courts can lift the veil
of an innocuously worded order to look at the face of the order and to find ..it
out whether it is as innocent as worded. [537-A-C]
Parshotam Lal Dhingra v. Union of India, (1958] SCR 828; State of
H Bihar v. Gopi Kishore Prasad, AIR (1960) SC 689; State of Orissa v. Ram
C.P. SHAIIl v. STATE [S. SAGHIR AHMAD, J.] 531
Narayan Das, [1961] 1 SCR 606; Ranendra Chandra Banerjee v. Union of A
India, [1964] 2 SCR 135; Jagdish Mitter v. Union of India, Am (1964) SC
449; Madan Gopal v. State of Punjab, [1963] 3 SCR 716; Champaklal Chimanlal
Shah v. Union of India, [1964) 5 SCR 190; State of Punjab v. Sukh Raj
Bahadur, [1968) 3 SCR 234; Union of India & 01:v. v. R.S. Dhaba, [1969) 3
SCC 603; State of Biharv. ShivaBhikshuk Mishra, [1971] 2SCR 191; R.S. Sia! B,
v. State ofU.P., [1974) 3SCR 754; State of U.P. v. SugharSingh, [1974] 2SCR
335; Madhav La.xman Vaikunthe v. State of Mysore, [1962) 1SCR886; State of
Bombay v. F.A. Abraham, [1962) Supp. 2 SCR 92; Samsher Singh v. State of
Punjab, [1975] 1SCR814; State of Punjab v. P.S. Cheema, [1975) 4 SCC 84;
State of U.P. v. Ram Chandra Trivedi, [1977] 1SCR462; RegionalManagerv.
Pawan Kumar Dubey, [1976) 3 SCR 540; Commodore Commanding, Southern C
Naval Area, Cochin v. V.N. Rajan, [1981) 3SCR165; Gujarat Steel Tubes ud.
v. Gujarat Tubes Mazdoor Sabha, [1980] 2 SCR 146; Oil & Natural Gas
Commission v. Md. S. Iskender Ali (Dr.), [1980) 3 SCR 603; Napal Singh v.
State of U.P., [1985] 2 SCR 1; Neyal Singh v. State of U.P., [1980] 3 SCC 288;
Anoop Jaiswal v. Govt. of India, [1984] 2 SCR 453; Shesh Narain Awasthy v. D
State of U.P. & Ors., [1980] 2 LLJ 99; Ravindra Kumar Misra v. U.P. State
Handloom Corporation Ltd., [1988] 1 SCR 501; State of U.P. v. Kaushal
Kishore Shukla, [1991) 1 SCR 29; Radhey Shyi:zm Gupta v. U.P. State Agro
Industries Corporation Ltd. & Anr., [1999) 2 SCC 21 and Commissioner of
Food & Civil Supplies, Lucknow, U.P. v. Prakash Chandra Saxena, [1994] 5
sec 177, relied on. E

3.1. The important principles which are deducible on the concept of
"motive" and "foundation", concerning a probationer, are that a proba-
tioner has no right to hold the post and his services can be terminated at
any time during or at the end of the period of probation on account of F
general unsuitability for the post in question. If for the determination of
suitability of the probationer for the post in question or for his further
retention in service or for confirmation, an enquiry is held and it is on the
basis of that enquiry that a decision is taken to terminate his services, the
order will not be punitive in nature. But, if there are allegation of miscon-
duct and an enquiry is held to find out the truth of that misconduct and an G
order terminating the services is passed on the basis of that enquiry, the
order would be punitive in nature as the enquiry was held not for assessing
the general suitability of the employee for the post in question, hut to find
out the truth of allegations of misconduct against that employee. In this
situation, the order would be founded on misconduct and it will not be a H
-'

532 SUPREME COURT REPORTS [2000] 3 s.c. ~.
A matter of ''motive''; [544-F-H; 545-AJ

.. . :3..2.: ''M:otiVe" is the mo"ing powenvhich impels action.for a definite
. result "Motive'' is that which incites or stimulates a person tO do an act. An
order terminating the services of an employee is an act done by the em-
ployer. There may be many factors compelling the employer to take this
B action. If it was the factor of general unsuitability of the employee for the
post held by him, the action would he upheld in law. If, however, there
alleglltions were of serious misconduct against the employee and a prelimi-
nary enquiry is held behind his back to ascertain the truth of those allega-
tions and a termination order is passed thereafter, the order, having regard
c to other Circumstances, would be founded on the allegations of misconduct
which were found to be true in the preliminary enquiry. [545-B-C]

3.3. Appellant had successfully completed his training and had also
compl~ted two years of probationary period. without any blemish. The
quarrel waS between two other Constables and his involvement was estab-
D lished through the enquiry. The termination was founded on the report of
the prCiiminary enquiry which was not held to find out whether he was
suitable for further retention in service or for confirmation as he had
already completed the period of probation quite a few years ago but was
held to find out his involvement. In this situation, particularly when it is
admitted that his performance was throughout unblemished, the order was
E
definitely punitive in character as it was founded on the allegations of
misconduct. [545-D-F]

4. When a particular procedure is prescribed by the Registrations for
termination of a probationer's service then the termination has to be
F brought aboutin that manner. The probationer has to be informed of the
grounds on which his services are proposed to he terminated and is re-
quired to explain his position, which is to be considered by the Superintend-
ent of Police. If this procedure is followed and the services are terminated
thereafter, it would not amount to a punitive action. The rule being manda-
tory in nature, compliance thereof would not alter the nature of the order
G passed against the probationer. [546-E-G]

The Stcite of Orissa & Am: v. Ram Narayan· Das, [1961) 1 SCR 606;
Ranendra Chandra Banerjee v. Union of India, [1964] 2 SCR 135; State of
. Biharv. Gopi Kishore Prasad, AIR (1960) SC 689; Shamsher Singh v. State of
H Punjqq, (1975) 1 SCR 814; Radhey Shyam Gupta v. U.P. State Agro Industries
C.P. SHARI v. STATE [S. SAGHIR AHMAD, J.] 533
Corporation l.Jd. & Am:, ( 1999) 2 SCC 21, relied on. A

· 5. In the instant case, there has been total non-compliance with the
provisions of Para 541 of the Regulations and services of the appellant were
terminated without issuing him any notice intimating the grounds on which
his services were proposed to be terminated nor was his explanation ever
obtained. Hence the order of termination is set aside. [548-C] B

CIVIL APPELLATE JURISDICTION : Civil Appeal No. 2930 of 2000.

From the Judgment and Order dated 27.11.97 of the Allahabad High
Court in W.P. No. 7819 of 1993.
c
Giridhar Upadhyay, Ms. V.G. Upadhyay and R.D. Upadhyay for the
Appellant.

Dr. K.S. Chauhan and R.B. Misra for the Respondents.
D
The Judgment of the Court was delivered by

S. SAGHIR AHMAD, J. Leave granted.

What is "motive"; what is "foundation"; what is the difference between
the two; these are questions which are said to be still as baffling as they were E
when Krishna Iyer, J. in Samsher Singh v. State of Punjab, [1974] 2 SCC 831
=- [1975] 1 SCR 814 = AIR (1974) SC 2192, observed as under :
"Again, could it be that if you summarily pack off a probationer, the
order is judicially unscrutable and immune? Jf you conscieniiously
seek to satisfy yourself about allegations by some sort of enquiry you F
get caught in the coils of law, however, harmlessly the order may be
phrased. And so, this sphinx-complex has had to give way in later
cases.· In some cases the rule of guidance has been stated to be 'the
substance ofthe matter' and the 'foundation' of the order. When does
'motive' trespass into 1oundation'? When do we lift the veil of 'form' G
to touch the 'substance'? When the Court says so. These 'Freudian'
frontiers obviously fail in the work-a-day world."

But, as we shall presently see, the law, on account of recent judgments
concerning the services of a probationer, is fairly well-settled and there is no
cause for being confounded or bewildered. The perplexity which, at one time, H
- \

534 SUPREME COURT REPORTS [2000] 3 S.C.R.
A surrounded the torrid question involved in this case has yielded to the clarity
of reasons propounded by this Court from time to time in recent times to which
a reference shall be made during the course of this discussion.

The appellant was recruited on 1.10.1985 as a Constable in 34th
Battalion, Pradeshik Armed Constabulary, U.P. under the U.P. Pradeshik
B Armed Constabulary Act, 1948. He completed his training on 6th of Septem-
ber, 1986 and was, thereafter, placed on probation for a period of two years.
He completed his period of probation on 5th of September, 1988 but a year
later, on 19th of July, 1989, his services were terminated by a simple notice
in terms of Rule 3 of the U.P. Temporary Government Servants (Termination
c of Service) Rules, 1975. The order of termination was challenged by the
appellant before the U.P. Public Service Tribunal which, by its judgment dated
18.1.1993, allowed the claim petition and set aside the order dated 19.7.1989
by which the services of the appellant were terminated. Respondents 1 and 2,
thereafter, approached the High Court through a Writ Petition which was
allowed on 27th of November, 1997 and the judgment passed by the Tribunal
D was set a~ide.

Learned counsel for the appellant has contended that the order by which
the services of the appellant were terminated, though innocuous apparently,
was, in fact, punitive in nature. The appellant, it is contended, could not have
E been removed from service without holding a regular departmental enquiry. It
is further contended that the courts including the Tribunal constituted under
the U.P. Public Services (Tribunal) Act, 1976 have full jurisdiction to go
behind the order to find out whether it was an order of termination simpliciter
or it was an order passed by way of punishment. It is pointed out that this
aspect of the matter was considered by the Tribunal which, on the basis of the
F facts set out in the counter-affidavit filed on behalf of the respondents as also
the entire service record of the appellant which was produced before it, came
to the conclusion that the order was punitive in nature. This fmding, it is·
contended, could not have been disturbed by the High Court in a Writ Petition
under Article 226 of the Constitution. Learned counsel for the respondents has,
G on the contrary, contended that the appellant was a temporary employee and,
therefore, his services could be terminated at any time by giving him a month's
notice in terms of U.P. Temporary Government Servants (Termination of _A I
Service) Rules, 1975. In the Counter-Affidavit filed before the Tribunal before
which the order dated 19.7.1989 (termination order) was challenged by the
appellant, it was, inter alia, stated that on 24th of June, 1989 while camping
H
C.P. SHAHI v. STATE [S. SAGHIR AHMAD, J.] 535
at Ghat Varanasi for Flood Relief Training, a quarrel had taken place between A
two Constables as a result of which Constable Aron Prakas Tewari used filthy
and unparliarnentaiy language against Constable Radhey Shyarn Pandey. He
also caused injuries to Constable Radhey Shyam Pandey by kicks and fists.
He was joined by Constable Rajesh Kumar Pandey. Other Constables also
joined the fray. A preliminary enquiry was conducted by Shri Kailash Chaube,
B
Assistant Commandant, P.A.C. and a few constables including the appellant
were found guilty of indiscipline and misbehaviour and it was for this reason
that the services of the appellant were terminated. The respondents admitted
in the counter- affidavit that there was no adverse material against the
appellant before the incident in question. The original records which were
produced before the Tribunal and were scrutinised by it indicated that the C
order by which the services of the appellant were terminated was passed on
account of his alleged involvement in the quarrel between the constables at the
Ghat Varanasi Camp. The Tribunal has found as under:-

"The preliminary enquiry file No.Ja-2/89 relating to the petitioner and
other constables of 34th Bn. P.A.C. Varanasi from page 21134 to 22/ D
33 dated 26.6.89 shows that the enquiry was conducted by Sri Kailash
Chaube, Assistant Commandant, 34th Bn. P.A.C. Varanasi and in the
preliminary enquiry report he concluded at pages 21134 to 22/j 7 that
the petitioner along with others had indulged in a misconduct of
hurling blows and used filthy language to the superior officers of the E
Department and he was found guilty along with others for the said
misconduct and misbehaviour. Thereafter on internal page 6 the
impugned order of termination dated 19.7.89 was passed in respect
of the petitioner and on the same day he was served the copy of the
order."
F
It was in view of the above finding that the termination order was held
to be punitive in nature and was consequently set aside by the Tribunal but
the High Court relying upon the decision of this Court in State of U.P. v.
Kaushal Kishore Shukla, [1991] 1 SCC 691 = [1991] 1 SCR 29, quashed the
order of the Tribunal. G
The first contention of the learned counsel for the appellant is about the
status of the appellant. Learned counsel has contended that the appellant could
not have been legally removed from service, except by way of disciplinary
action in accordance with the requirements of Article 311(2) of the Constitu-
tion. It is contended that after completion of the period of probation, the H
536 SUPREME COURT REPORTS [2000) 3 S;C.R
A appellant had acquired 'permanent' status and, therefore, his services ·could ~
not have been terminated by a mere riotice or a monrh' s pay in lieu thereof.
This argunient cannot be accepted. ... .' ..

An assertion rhat on completion of rhe period of probation the appellant
had acquired 'permanent' status is based on a misreading of the provisions of
B Para 541 of the U.P. Police Regulations, relevant portion of which is quoted
below :

"541. (1) Recruits will be on probation for a period of two years,
except that --
c (a) those recruited directly in the Criminal Investigation Department
or Districts Intelligence Staff will be on probation for three years, and

(b) those transferred to the Mounted Police will be governed by the
directions contained in paragraph 84 of the Police Regulations.
D If during rhe period of probation their conduct and work _have been
satisfactory and they are approved by the Deputy Inspector General
of Police at the end of the period of probation for service in the force
the Superintendent of Police will confirm them in their appointmenL"

A perusal of the above provision would indicate that the period of
E
probation is two years. The Regulation is silent as to the maximum period
beyond which the period of probation cannot be extended. In the absence of
this prohibition, even if the appellant completed two years of probationary
period successfully and without any blemish, his period of probation shall be
treated to have been extended as a 'permanent' status can be acquired only by
F means of a specific order of confirmation.

This Court in State of Punjab v. Dharam Singh, [1968) 3 SCR 1 =AIR
(1968) SC 1210 ruled out the proposition of automatic confomation on
completion of the period of probation. This Court ruled that the 'permanent'
status can be acquired only by a specific order confirming the employee on
G the post held by him on probation. To the same effect is the decision in Partap
Singh v. U.T. of Chandigarh, [1979] 4 SCC 263 = [1980] 1 SCR 487 =AIR
(1980) SC 57. In Municipal Corporation, Raipur v. Ashok Kumar Misra,
(1991) 3 SCC 325 = [1991) 2 SCR 320 = AIR (1991) SC 1402, the same
principles were reiterated. In view of the above, the contention that the
H appellant had acquired 'permanent' status cannot be accepted. His status was
C.P. SHAHI v. STATE [S. SAGHIR AHMAD, J.] 537
, that of a probationer. A
Now, it is well-settled that the temporary Government servants· or
probationers are as mm.:h entitled to the protection of Article 311(2) of the
Constitution as the permanent employees despite the fact that temporary
government servants have no right to hold the post and their services are liable
to be te1minated at any time b}'. ~ving them a mont.lt' s notice without ass.igning . :e
any reason either in terms of the contract of service or under· the relevant
statutory rules regulating the terms and conditions of such service. The courts
can, therefore, lift the veil of an innocuously worded order to look at the real
face of the order and to find out whether it is as innocent as worded. (See:
Parshotam Lal Dhingra v. Union of India, AIR (1958) SC 36 = [1958] SCR c
828). It was explained in this decision that inefficiency, negligence or
misconduct may have been the factors fc;ir inducing the Govelllm.ent to
te1minate the services of a temporary employee under the terms of the contract
or under the statutory Service Rules regulating the terms and conditions of
service which, to put it differently, may have been the motive for terminating
the services but the motive by itself does not make the order punitive unless D
the order was "founded" on those factors or other disqualifications.

Following the decision of Parshottam Lal Dhingra's case (supra), this
Court in State of Biharv. Gopi Kishore Prasad, AIR (1960) SC 689, held that
if the services of a probationer are terminated on the basis of an enquiry into
E
the allegations of misconduct and inefficiency, the order would be punitive.
It was pointed out that in the case of a probationer, it is always open to the
Government to hold an enquiry merely to assess the merits of the employee
to find out whether he was fit to be retained in service and confirmed. In
another case relating to a probationer, namely, in State of Orissa v~ Ram
Narayan Das, [1961] 1 SCR 606 =AIR (1961) SC 177, where the services F
were governed by Rule 55-B of the Civil Services (Classification, Control and
Appeal) Rules which provided that where the services of a probationer were
intended to be terminated either during the period of probation or at the end
of that period for any fault or on account of his unsuitability, be would be
apprised of the grounds of unsuitability and would also be afforded an
G
opportunity to show-cause against it before orders are passed against him, it
was held that the tennination order would not become punitive merely because
of an antecedent enquiry but the real object or purpose of the enquiry had to
be found out whether it was held merely to assess the general unsuitability of
the employee or it was held into charges of misconduct or inefficiency etc. In
Ranendra Chandra Banerjee v. Union o.f India, AIR (1963) SC 1552 = [1964] H
538 SUPREME COURT REPORTS (2000) 3 S.C.R.
A 2 SCR 135, which again was a case relating to a probationer, it was held that
on account of Rule 55-B of the Civil Services (Classification, Control and
Appeal) Rules if the enquiry was held for the limited purpose of finding out
whether the employee was fit to be retained or not, the said enquliy would not
make the order punitive as the enquiry could not be related to any misconduct
of the employee. This view was reiterated in Jagdish Mitter v. Union of India,
B AIR (1964) SC 449. In Madan Gopal v. State of Punjah, AIR (1963) SC 531
= (1963) Supp.(3) SCR 716, the order by which the services of the employee
were terminated was an order simpliciter in nature, which was innocuously
worded, but it was held by this Court that the form of the order was not
decisive and the Court could go behind that order to fmd out whether it was
c founded upon the misconduct of the employee.

T'1ese cases, namely, State of Bilzar v. Gopi Kishore Prasad, AIR (1960)
SC 689; State of Orissa v. Ram Narayan Das, (1961) 1 SCR606 =AIR (1961)
SC 177; Madan Gopal v. State of Punjab, (1963) Supp. 3 SCR 716 =AIR
(1963) SC 531; and Jagdish Mitter v. Union of India, AIR (1964) SC 449 were
D considered by this Court in Champaklal Chimanlal Shah v. Union of India,
[1964] 5 SCR 190 =AIR (1964) SC 1854 where the services of the appellant,
who was a temporary employee, were terminated by giving him a simple
notice specifying therein that the services would stand terminated with effect
from the date mentioned therein. But, before the termination of his services, ..lfllt'
E he was called upon to explain certain irregularities and was also asked to
submit his explanation, but no regular departmental enquriy was held. It was
held that since no punitive action was taken against the appellant, there was
no question of the applicability of Article 311(2) of the Constitution.

In another significant decision in State of Punjab v. Sukh Raj Bahadur,
F (1968) 3 SCR 234 = AIR (1968) SC 1089 where the respondent, who was
officiating in the Punjab Civil Service (Executive Branch) was reverted to his
substantive post in the Delhi Administration after issuing him a charge sheet
to which a reply was submitted by the respondent but the disciplinary enquiry
was not proceeded with, and an order of reversion was passed, it was held that
G the order could not be treated to have been passed by way of punishment. The
Court laid down the following propositions :

"1. The services of a temporary servant or a probationer can be
terminated under the rules of his employment and such termination
without anything more would not attract the operation of Art. 311 of
H the Constitution.
C.P. SHAID v. STATE [S. SAGHIR AHMAD, J.] 539

~-.:.(
2. The circumstances preceding or attendant on the order of termina- A
tion of service have to be examined in each case, the motive behind
it being immaterial.

3. If the order visits the public servant with any evil consequences
or casts an aspersion against his character or integrity, it must be
considered to be one by way of punishment, no matter whether he was B
a mere probationer or a temponuy servant.
.....
4. An order of termination of service is unexceptionable form
preceded by an enquiry launched by the superior authorities only to
ascertain whether the public servant should be retained in service, c
does not attract the operation of Art. 311 of the Constitution.

5. If there be a full-scale depaitmental enquiry envisaged by Art. 311,
i.e. an Enquiry Officer is appointed, a charge-sheet submitted, expla-
nation called for and considered, any order of termination of service
made thereafter will attract the operation of the said Article." D

These principles as also the principle laid down in Champaklal's case
(supra) were reiterated by this Court in Union of India and Ors. v. R.S. Dhaba,
[1969] 3 SCC 603; State of Bilzar v. Shiva Bhikshuk Mishra, [1970] 2 SCC
871 = [1971] 2 SCR 191 =AIR (1971) SC 1011; R.S. Sial v. State of U.P.,
E
[1974] 3 SCR 754 =AIR (1974) SC 1317 = [1975] 3 SCC 111 and it was laid
down that in order to attract the provisions of Article 311 (2) it has to be seen
whether the misconduct or negligence was a mere motive for the order of
reversion or termination or whether it was the very foundation of that order.
It was again reiterated that the form of the order was not conclusive of its true
nature and the Court has to examine the entirety of circumstances preceding F
or attendant on the order of termination. To the same effect is the decision of
this Court in State of U.P. v. Sughar Singh, (1974] 1 SCC 218 = (1974] 2 SCR
335 = AIR (1974) SC 423, which related to reversion and in which reliance
was placed on two earlier decisions in Madhav Laxman Vaikunthe v. State of
Mysore, AIR (1962) SC 8 = (1962] 1 SCR 886 and State of Bombay v. F.A. G
Abraham, AIR (1962) SC 794 = [1962] Supp. 2 SCR 92. It was, however, laid
), down that if the order visits the employee with penal consequences, the order
would be punitive. It was for this reason that the order of reversion in that case
was held to be bad.

In the same year, came the Seven-Judge Bench decision of this Court H
540 . SUPREME COURT REPORTS [~~00} 3 S.C.R.

A in Samsher Singh v. State of Punjab, f1974] 2 SCC 831 =AIR (197,4) SC 2192
= (1975) 1 SCR 814, in which "Motive" and· "Foundation" theory was
reiterated and it was laid down that the question whether an order terminating
the services of a temporary employee or a probationer was by way of
punishment or not would depend on the facts and circumstances of each case.
I •
The form of the order, it was observed, was not conclusive and an innocuously
B
worded order, terminating the services of a temporary employee or a proba- ·'
(
tioner may, in the facts of the case, be found to have been passed on account
of serious and grave misconduct in utter violation of Article 3,11(2) of the
Constitution.

c This decision was followed in State of Punjab v. P.S. Cheema, AIR
(1975) SC 1096 = (1975) 4 SCC 84 and the termination order, regarding which
a concurrent finding of fact was recorded by the trial court, the lower appellate
court and also by the High Court in second appeal that it was punitive in
nature, was held to be bad.

D While the judicial pronouncements stood at that stage, the entire case
law was reviewed by this Court in State of U.P. v. Ram Chandra Trivedi, AIR
(1976) SC 2547 = (1976] 4 SCC 52 = [1977) 1 SCR 462, in which it was
contended that the legal and Constitutional position with regard to an order
of termination was not settled as there were conflicting decisions of this Court
E on that question. This contention was not accepted and on a review of the
entire case law, including the Seven- Judge Bench decision in Sams her Singh' s
case (supra), it was laid down that the Court has consistently held that the
"motive", in passing an order of termination or reversion, operating in the
minds of the Govt. was not a relevant factor for determining whether the order
was passed by way of punishment. What was determinative of the true nature
F of the order was not its exterior form but the "foundation" on which it was
based. If misconduct or negligence was the foundation of the order of
termination, or for that matter, reversion, the order would be punitive in nature.
The Court also referred to the decision in Regional Manager v. Pawan Kumar
Dubey, (1976] 3 SCC 334 =AIR (1976) SC 1766 = [1976) 3 SCR 540, in
G which it was observed as under :

"We think that the principles involved in applying AI1icle 311(2)
having been sufficiently explained in Shamsher Singh's case AIR .4-
(1974) SC 2192 (supra) it should no longer be possible to urge that
Sughar Singh's case (supra) could give rise to some misapprehension
H of the law. Indeed, we do not think that the principles of law declared
C.P. SHARI v. STATE [S. SAGHIR AHMAD, J.] 541
and applied so often have really changed. But the application of the A
~
same law to the different circumstances and facts of various cases
which have come up to this Court could create the impression
sometimes that there is some conflict between different decisions of
this Court. Even where there appears to be some confUct,. it would,
we think, vanish when the ratio decidendi of each case is correctly
B
understood. It is the rule deducible from the application of law to the
facts and circumstances of a case which constitutes its ratio decidendi
~ and not some conclusion based upon facts which may appear to be
similar. One additional or different fact can make a world of differ-
ence between conclusions in two cases eyen when the same principles
are applied in each case to similar facts." c
(Emphasis supplied)

-• Termination simpliciter of a temporary Govt. servant on the ground of
unsuitability does not attract the provisions of Article 16, nor is the protection
under Article 311 (2) of the Constitution available to a temporary Govt. servant
unless the termination involved "stigma", was the dictum laid down by this D
Court in Commodore Commanding, Southern Naval Area, Cor:hin v. V.N.
Rajan, [1981] 2 SCC 636 = AIR (1981) SC 965 = (1981) 3 SCR 165.
,~,
In Gujarat Steel Tubes Ltd. v. Gujarat Steel Tubes Mazdoor Sabha,
~ [1980] 2 sec 593 = (1980) 1 LLJ 137 = [1980] 2 SCR 146 = AIR (1980)
E
SC 1896, it was laid down .hat a Court or Tribunal is entitled to find out the
true nature of the te1mination order, namely, whether it is punitive or not. In
this regard, the fo1m of the order will not be decisive and the Court can lift
the veil to see the true nature of the order. The Court observed that the
substance, not semblance, governs the decision. The Court further observed
that what was decisive was the plain reason for the discharge and not the F
~ strategy of a non-enquiry. If the basis was not the misconduct, the order could
be saved. The Court further observed that the mere fact that after being
satisfied of the guilt the Govt. abandons the enquiry and proceeds to terminate
the services by a simple order, would not be the relevant factor in considering
the true nature of the order. Given an alleged misconduct and a live nexus
G
between it and the termination of services, the conclusion would be "dis-
_. missal" even if full benefits, as on simple termination, are given and non-
injurious terminology is used.

'<' The tests for determining · whether termination was a termination
H
~

~

0
542 SUPREME COURT REPORTS . (2000] 3 S.C.R.
A simpliciter or by way of punishment laid down in earlier decisions were
reiterated in Oil & Natural Gas Commission v. Md. S. Iskender Ali (Dr.),
')5.
'.--
(1980] 3 sec 428 = (1980) 2 LLJ 155 = (1980] 3 SCR 603 = AIR (1980) '
~
SC 1242 and Nepal Singh v. State of U.P. (1980] 3 SCC 288 = (1980) 2 LLJ
161 = (1980) LIC 747. The latter was a case of termination simpliciter on
..
"t--
account of the drive launched by the Inspector General of Police for weeding
B
out Police Officers who were unsuitable or unfit to be continued in service. r
On the facts and circumstances of that case, it was held that the question ~
whether the appellant, who was a temporary servant, should be retained in -,.._
service, directly arose during the drive launched to weed out unsuitable i:--
officers and it was for this reason that the te1mination order was upheld, '
c particularly as there was nothing to show that the termination order was made
tr""
by way of punishment. In another decision which, incidentally, again is Nepal
Singh v. State of U.P., [1985) 1 SCC 56 =AIR (1985) SC 84 = (1985) 2 SCR
.
1, the Court held that where the services of a temporary Govt. servant are ':>----
terminated on the ground that his reputation for corruption makes him ~
unsuitable for retention in the service, the State, or for that matter, any
'
D t--
statutory employer, must take great care when proceeding to terminate a career r-
,.__
on the ground of unsuitability, to ensure that its order is founded on defmable ...
material, objectively assessed and relevant to the ground on which the
/1 ~
termination is effected. It was observed that the Court will view with great
'"'---
disfavour any attempt to circumvent the requirement of Article 311(2). In ~
E Anoop Jaiswal v. Govt. of India, (1984] 2 SCC 369 = [1984] 2 SCR 453 =
AIR (1984) SC 636, it was found on a consideration of the entire record that
the real foundation for the order of discharge of the appellant-probationer was
.l
the alleged act of misconduct. This, it was observed, made the impugned order .
I

punitive in nature and was, therefore, held to be bad. t
F
Shesh Narain Awasthy v. State of U.P. & Ors., (1988) 2 LLJ 99 was a ~
case of a temporary Constable in the U.P. Police whose services were
terminated by an apparently innocuous order. On scrutiny it was found that the
services were terminated on account of his alleged participation in activities
..,
I

G of unrecognised Police Karamchari Parishad. The termination order, therefore,
was held to be bad as having been passed without following the procedure
prescribed under Article 311(2) of the Constitution. .t ,,(/

In Ravindra Kumar Misra v. U.P. State Handloom Corporation Ltd,
r
[1987] Supp. SCC 739 = AIR (1987) SC 2408 = [1988) 1 SCR 501, it was ;
H held that for finding out the effect of the order of termination, the concept of )ti
v
C.P. SHARI v. STATE [S. SAGHIR AHMAD, J.] 543
"motive" and "foundation" has to be kept in mind. It was further observed that A
no strait-jacket test can be laid down to distinguish the two, namely, the
'motive' and the 'foundation'. Whether motive has become the foundation has
to be decided by the Court with reference to the facts of a given case. It was
also observed that 'motive' and '.foundation' are ce11ainly two points of one
line - ordinarily apart but when they come together, 'motive' gets transformed
B
and merged into 'foundation'. It was also observed that since in regard to a
temporary employee or an officiating employee an assessment of the service
is necessary, merely because the Authority proceeds to make an assessment
and records its views, it would not be available to be utilised to make the order
of termination, following such ".lssessment, punitive in character. It was
observed by this Court that in the. relationship of master and servant there is C
a moral obligation to act fairly. There should be an assessment of the work of
the employee and if any defect is noted in his working, the employee should
be made aware of the defect in his work and deficiency in his performance.
Defects or deficiency, indifference or indiscretion may be with the employee
by inadvertance and not by incapacity to work. Timely communication of the D
assessment of work in such cases may put the employee on the right track.
Without any such communication, it was observed, it would be arbitrary to
give a movement order to the employee on the ground of unsuitability.

In State of U.P. v. Kaushal Kishore Shukla, (1991] 1 SCC 691 = [1991]
1 SCR 29, which has been relied upon by the High Court in the impugned E
judgment, it was held that merely because a preliminary enquiry was held
against a temporary Govt. servant, would not be a ground to hold that an order,
otherwise innocuous on the face; of it, by which the services were terminated,
was punitive in nature. The decision in Nepal Singh v. State C'f U.P., [1985]
1SCC56 = [1985] 2 SCR I= AIR (1985) SC 84 was held to be per incuriam
as in that case, Champaklal's case (supra) was not considered, but the Court
F
did observe that if on an overall assessment of the work and conduct of the
employee the authority competent in that behalf to terminate the services, is
satisfied that on account of the employee's general unsuitability and ineffi-
ciency or misconduct it would not be in the public interest to retain him in
service,. it may either terminate the services by an innocuous order or may G
proceed to take punitive action by holding a regular depa,rtmental enquiry. The
Court, however, emphasised that the termination has to be in accordance with
the terms and conditions of service regulated by relevant rules. In Radhey
Shyam Gupta v. U.P. State Agro Industries Corporation Ltd. & Am:, IT (1998)
8 SC 585 = (1999] 2 sec 21, which related to a probationer, the whole legal H
544 SUPREME COURT REPORTS (2000] 3 S.C.R.
A position was reviewed by Brother M. Jagannadha Rao, J., in an illuminating ,,.
and research- oriented judgment and after considering various decisions
including the decision in Kaushal Kishore Shukla's case (supra) and a still
later decision in Commissioner of Food & Civil Supplies, Lucknow, U.P. v.
Prakash Chandra Saxena, (1994] 5 SCC 177 = (1994) 3 Scale 12, so as to
I-
\

trace the development of law relating to this aspect of service jurisprudence,
B
laid down that there has not been any conflict of opinion inter se various
judgments including those laying down the "Motive" and "Foundation"
theory. It was held that the question whether the order by which the services ~

were terminated was innocuous or punitive in nature had to be decided on the
facts of each case after considering the relevant facts in the light of the
c surrounding circumstances. Benefit and protection of Article 311 (2) of the
Coftstitution is available not only to temporary servants but also to a proba-
tioner and the court in an appropriate case would be justified in lifting the veil
to find out the true nature of the order by which the services were terminated.
The whole case law is thus based on the peculiar facts of each individual case
.,..
and it is wrong to say that decisions have been swinging like a pendulam;
D
right, the order is valid; left, the order is punitive. It was urged before this
Court, more than once including in Ram Chandra Trivedi's case (supra) that

E
there was a conflict of decisions on the question of order being a simple
termination order or-a-punitive order, but every time the Court rejected the
contention and held that the apparent conflict was on account of different facts
of different cases requiring the principles already laid down by this Court in
various decisions to be applied to a different situation. But the concept of
..
"motive" and "foundation" was always kept in view.

The important principles which are deducible on the concept of "mo-
tive" and "foundation", concerning a probationer, are that a probationer has
F
no right to hold the post and his services can be terminated at any time during
or at the end of the period of probation on account of general unsuitability for
the post in question. If for the determination of suitability of the probationer
for the post in question or for his further retention in service or for
confirmation, an enquiry is held and it is on the basis of that enquiry that a
G decision is taken to terminate his services, the order will not be punitive in
nature. But, if there are allegations of misconduct and an enquiry is held to
find out the truth of that misconduct and an order terminating the services is
passed on the basis of that enquiry, the order would be punitive in nature as
the enquiry was held not for assessing the general suitability of the employee_
" ...

for the post in question, but to find out the truth of allegations of misconduct
H
C.P. SHAHI v. STATE [S. SAGHIR AHMAD, J.] 545
..- against that employee. In this situation, the order would be founded on A
misconduct and it will not be a mere matter of "motive".

"Motive" is the moving power which impels action for a definite result,
or to pul il differently, "motive" is that which incites or stimulates a person
to do an act. An order tenninating the services of an employee is an act done
by the employer. What is that factor which impelled tl1e employer to take this B
action. If it w~s t11e factor of general tmsuitability of the employee for the post
.4( held by him; the actiop would be upheld in law. If, however, there were
allegations of serious misconduct against the employee and a preliminaiy
enquiry is held behind his back to ascertain the truth of those allegations and
a termination order is passed t11ereafter, the order, having regard to other C
circumstances, would be founded on the allegations of misconduct which were
found to be true in the prelirninaiy enquiry.

- Applying these principles to the facts of the present case, it will be
noticed that the appellant, who was recruited as a Constable in the 34th
Battalion, Pradeshik Aimed Constabulary, U.P., had successfully completed D
his training and had also completed two years of probationary period without
any blemish. Even after the completion of the period of probation under Para
541 of the U.P. Police Regulations, he continued in service in that capacity.
The incident in question, nainely, the quaiTel was between two other Consta-
bles in which the appellant, to begin with, was not involved. When the quarrel
was joined by few more Constables on either side, then an enquiry was held
E
to find out the involvement of the constables in that quarrel in which filthy
language was also used. It was through this enquiry that appellant's involve-
ment was found established. The tennination was founded on the report of the
preliminary enquiry as the employer had not held the preliminaiy enquiry to
find out whether the appellant was suitable for further retention in service or F
for confirmation as he had already completed the period of probation quite a
few years ago but was held to find out his involvement. In this situation,
particularly when it is admitted by the respondent that the performance of the
appellant throughout was unblemished, the order was definitely punitive in
character as it was founded on the allegations of misconduct.
G
There is another aspect of the matter.

Para 541 of the tJ.P. Police Regulations provides as under :

"541. (I) Recruits will be on probation for a period of two years,
except that - H
546 SUPREME COURT REPORTS [2000] 3 S.C.R.
A (a) those recruited directly in the Criminal Investigation Department
or District Intelligence Staff will be on probation for three years, and

(b) th9SC transfetTcd to t11c Mounted Police will be governed by the
directions contained in paragraph 84 of the Police Regulations.

B If during the period of probation their conduct and work have been
satisfactory and they are approved by the Deputy Inspector General
of Police at the end of the period of probation for service in the force
the Superintendent of Police will confom them in their appointment.

(2) In any case in which either during or at the end of the period of
c probation, the Superintendent of Police is of opinion that a recruit is
unlikely to make· a good police officer he may dispense with his
services. Before, however, this is done the recruit must be supplied
with specific complaints and grounds on which it is proposed to
discharge him and then he should be called upon to show cause as
D to why he should not be discharged. The recruit must furnish his
representation in writing and it will be duly considered by the
Superintendent of Police before passing the orders of discharge.

(3) Every order passed by a Superintendent under sub-paragraph (2)
above shall, subject to the conu·ol of the Deputy Inspector General,
E be final."

Where, therefore, the services of a probationer are proposed to be
telTilinated and a particular procedure is prescribed by the Regulations for that
purpose, then the termination has to be brought about in that manner. The
probationer-constable bas to be informed of the grounds on which his services
F are proposed to be terminated and he is required to explain his position. The
reply is to be considered by the Superintendent of Police so that if the reply
is found to be convincing, he may not be deprived of his services.

If this procedure is followed and the services are telTilinated thereafter,
it would not amount to a punitive action. The rule being mandatory in nature,
G
compliance thereof would not alter the nature of the order passed against the
probationer. This aspect was considered by this Court in two decisions,
namely, The State of Orissa & Anr. v. Ram Narayan Das, [1961] 1SCR606
(supra) and Ranendra Chandra Banerjee v. Union of India, [1964] 2 SCR 135
(supra) in terms of Rule 55-B of the Civil Services (Classification, Control &
H Appeal) Rules, which, in all respects, is akin to Para 541 of the U .P. Police
/,
C.P. SHARI v. STATE [S. SAGHIR AHMAD, J.] 547
Regulations quoted above. Relevant portion of Rule 55-B which was extracted A
in the case of State of Orissa & Am: v. Ram Narayan Das (supra) is quoted
below:

"Where it is proposed to tenninate the employment of a probationer,
whether during or at the end of the period of probation, for any
specific fault or on accow1t of his unsuitability for the service, the B
probationer shall be apprised of the grounds of such proposal and
given an oppmtunity to show cause against it, before orders are
passed by the authority competent to terminate the employment."

Immediately after quoting the Rule, the Court observed:
c
"Notice to show cause whether ~he employment of the respondent
should be terminated was, by Rule 55 B made obligatory."
....
+- The Court, after considering that the State had complied with the
requirements of Rule 55-B came to the conclusion that the order of tennination D
of services of the probationer was not pWlitive in nature.

In Ranendra Chandra Bane1jee v. Union of India (supra), the Court,
while considering the provisions of Rule 55-B, observed as under : ·

"Therefore in a case covered by r.55-B all that is required is that the
E
defects noticed in the work which make a probationer unsuitable for
retention in the service should be pointed out to him and he should
be given an opportunity to show cause against the notice, enabling
him to give an explanation as to the faults pointed out to him and
show any reason why the proposal to terminate his services because
of his unsuitability should not be given effect to. If such an oppor- F
tunity is given to a probationer and his explanation in reply thereto
is given due consideration, there is in our opinion sufficient compli-
ance of r.55-B. Generally speaking the purpose ofa notice under r.55-
B is to ascertain, after considering the explanation which a proba-
tioner may give, whether he should be retained or not and in such
G
a case it would be sufficient compliance with that rule if the grounds
on which the probationer is considered unsuitable for retention are
communicated to him and any explanation given by him with respect
to those ground is duly considered before an order is passed."

(Emphasis supplied) H
548 SUPREME COURT REPORTS [2000] 3 S.C.R.

A In two other cases, namely, State of Bihar v. Gopi Kishore Prasad
(supra) and Samsher Singh v. State of Punjab (supra), the question of
termination of services of a probationer was considered and it was laid down
that the form of the order was not conclusive and the court could go behind
the order to find out the real foundation of that order. Radhey Shyam Gupta
v. U.P. State Agro Industries Corporation Ltd & Am:, IT (1998) 8 SC 585,
B
which has been decided by Brother Jagannadha Rao, J., was also a case where
the services of a probationer were terminated.

As we have already seen above, there has been total non-compliance
with the provisions of Para 541 of the U.P. Police Regulations and services
C of the appellant were terminated without ever issuing him any notice intimat-
ing the grounds on which his services were proposed to be tenninated nor was
his explanation ever obtained. The services were terminated because he was
found involved in a quarrel between two other Police Constables.

For the reasons stated above, the appeal is allowed, the impugned
D judgment passed by the High Court is set aside and that of the U.P. Public
Services Tribunal is restored, but without any order as to costs.

A.Q. Appeal allowed.