Supreme Court of India
DR. P. S. MALIKversusHIGH COURT OF DELHI & ANR.
- Citation
- 2019 INSC 936
- Decided
- 21 August 2019
- Disposal
- Dismissed
- Bench
- ASHOK BHUSHAN
Holding
The High Court, as the disciplinary authority under Article 235, validly suspended the petitioner and initiated the inquiry, and the non‑supply of the preliminary report did not prejudice the petitioner.
Summary
Dr. P.S. Malik, an Additional District Judge, was accused of sexual harassment by a junior judicial assistant. The Delhi High Court's Full Court suspended him and constituted an Internal Complaints Committee (ICC) under the Sexual Harassment Act, 2013, which submitted a preliminary report recommending a disciplinary inquiry. Malik filed a writ petition under Article 32 challenging the High Court's jurisdiction to suspend him, arguing that the ICC’s reports under Sections 11 and 13 precluded further action and that the non‑supply of the preliminary report denied his right to appeal. The Supreme Court held that under Article 235 the High Court is the disciplinary authority for judicial officers, can suspend them and initiate inquiries, and that its actions were within jurisdiction. It also ruled that the preliminary report contained no findings and its non‑disclosure did not prejudice the petitioner. Consequently, the writ petition was dismissed.
Issues considered
- Whether the High Court is the disciplinary authority for judicial officers and can suspend the petitioner and initiate disciplinary inquiry.
- Whether the Full Court's decision to suspend the petitioner and commence inquiry was beyond its jurisdiction.
- Whether the non‑supply of the Preliminary Inquiry Report dated 05.11.2016 vitiated the proceedings or denied the petitioner a right of appeal.
Legislation cited
Subjects
sexual harassmentjudicial servicedisciplinary controlArticle 235High Court jurisdictionInternal Complaints Committeesuspensionprocedural fairness
Judgment
[2019] 12 S.C.R. 957 957
DR. P. S. MALIK A
v.
HIGH COURT OF DELHI & ANR.
(Writ Petition (Civil) No.705 of 2018)
AUGUST 21, 2019 B
[ASHOK BHUSHAN AND NAVIN SINHA, JJ.]
Constitution of India – Arts.233 and 235 – Petitioner was
working as Additional District Judge at Dwarka, New Delhi –Written
complaints submitted against the petitioner, to the Chief Justice of
C
the High Court of Delhi, by a lady Junior Judicial Assistant who
worked as Ahlmad in the petitioner’s Court from 18.05.2015 to
18.05.2016 alleging sexual harassment at work place– On
13.07.2016, the petitioner was placed under suspension – Internal
Complaints Committee constituted – Preliminary Report submitted
to the Full Court of the High Court opining that disciplinary inquiry D
be held against the petitioner – Full Court resolved to hold the
inquiry – Inquiry Report dated 09.03.2018 submitted by the
Committee – Petitioner has filed the present writ petition inter alia
submitting that there being an Inquiry Report by Internal Complaints
Committee as envisaged by ss.11 and 13 of the 2013 Act, the High
E
Court could not have decided to initiate the inquiry or suspend the
petitioner – Held: Petitioner is member of Judicial Service for which
disciplinary authority is the High Court – The word “control”
occurring in Art.235 means not only the general superintendence
of the working of the Courts but includes the disciplinary control
of the judicial officers, i.e., the district judges and judges F
subordinate to him – High Court can initiate disciplinary proceedings
against judicial officers – Power to suspend the judicial officer
vests in the High Court– Under the 2013 Act, complaint mechanism
and mechanism for constitution of the Internal Complaints
Committee, mechanism to inquire the complaint, are all for protection
G
of dignity and welfare of women at workplace – Provisions of ss.11,
13 in no manner affect the control of the High Court u/Art.235 with
respect to judicial officers– Full Court of the High Court is in no
manner precluded from initiating disciplinary inquiry against the
petitioner and placing him under suspension on being satisfied that
H
957
958 SUPREME COURT REPORTS [2019] 12 S.C.R.
A sufficient material existed – No error in the decision of the Full
Court dated 13.07.2016 – Further, submission of the petitioner that
due to non-supply of Preliminary Inquiry Report dated 05.11.2016,
the proceedings have been vitiated, not accepted – Only limited
issues as pressed by the petitioner have been considered –
Disciplinary proceedings against the petitioner still underway – It
B
is open for the petitioner to raise all pleas of facts and law before
the appropriate authority – Sexual Harassment of Women at
Workplace (Prevention, Prohibition and Redressal) Act, 2013 –
Chapters II, IV & V – ss.4, 11 and 13 – All India Services (Discipline
and Appeal) Rules, 1969 – r.8.
C Sexual Harassment of Women at Workplace (Prevention,
Prohibition and Redressal) Act, 2013 – ss.11, 13 and 18 – Complaint
of sexual harassment at work place made against the petitioner,
judicial officer in Delhi Higher Judicial Services, by an employee
in his Court – Present writ petition filed by the petitioner inter alia
D submitting that copy of the Preliminary Inquiry Report not being
supplied to him, he has been denied right to appeal – Held:
Preliminary Inquiry Report dated 05.11.2016 did not contain any
findings on allegations made against the petitioner – It only opined
that inquiry should be held – Even u/s.11(1) in the second proviso,
the only contemplation is to make available a copy of the findings –
E Thus, the report in which there are no findings, parties are not entitled
to have the copy – Inquiry Report referred in s.13 is the Report
which has been submitted by Internal Complaints Committee after
completion of the inquiry – Inquiry Report by Internal Complaints
Committee dated 09.03.2018 was admittedly supplied to the
F petitioner– Right of appeal given against the recommendation made
u/s.13(2) or (3) are appealable u/s.18– Thus, the right of appeal is
given to an aggrieved person only when report is submitted u/s.13
to the employer – No prejudice caused to the petitioner by non-
supply of Report dated 05.11.2016.
G Dismissing the writ petition, the Court
HELD: 1.1 Part VI of the Constitution of India deals with
“The States”. Chapter VI contains heading “Subordinate Courts”.
Articles 233 and 235 of the Constitution of India refer to two
distinct powers. The first is power of appointment, posting and
H promotion of District Judges and second is power of control over
DR. P. S. MALIK v. HIGH COURT OF DELHI 959
Judicial Officers of the State. The word “control” occurring in A
Article 235 means not only the general superintendence of the
working of the Courts but includes the disciplinary control of the
judicial officers, i.e., the district judges and judges subordinate
to him. The word “control” used in Article 235 has been held by
Supreme Court to be disciplinary control. Disciplinary authority
B
with regard to judicial officers is the High Court and it is the
High Court, which can initiate the disciplinary proceedings against
judicial officers. The High Court can also suspend a member of
the judiciary. Insofar as dismissal or removal is concerned, the
said orders are required to be passed by the Governor on the
recommendation of the High Court. The fact that the orders of C
dismissal or removal are issued by the approval of the Governor
in no manner denude the disciplinary control of the High Court.
[Paras 9, 14 and 16] [967-D-E; 971-A; 972-G-H]
1.2 The petitioner in the present case is a member of Judicial
Service for which disciplinary authority is the High Court. The D
Sexual Harassment of Women at Workplace(Prevention,
Prohibition and Redressal) Act, 2013 was to provide protection
against sexual harassment of women at workplace and for the
prevention and redressal of complaints of sexual harassment and
for matters connected therewith or incidental thereto. Chapter
II of Act, 2013 deals with constitution of Internal Complaints E
Committee. Chapter IV deals with complaint. In Chapter IV, one
of the sections is Section 11, which deals with inquiry into
complaint. Chapter V deals with inquiry into complaint and Section
13 deals with inquiry report. The Act, 2013 is a parliamentary
legislation, the preamble of which outlines the necessity of F
legislation. [Paras 18-21] [974-A-C; 975-B; 976-B-C]
1.3 The provisions of the Act, complaint mechanism and
mechanism for constitution of the Internal Complaints Committee,
mechanism to inquire the complaint are all for protection of dignity
and welfare of women at workplace. The provisions of Sections G
11 and 13 in no manner affect the control of the High Court under
Article 235, which it has with respect to judicial officers. The
power to suspend the judicial officer vests in the High Court.
The Full Court of the High court is in no manner precluded from
initiating disciplinary inquiry against the petitioner and placing
H
960 SUPREME COURT REPORTS [2019] 12 S.C.R.
A the petitioner under suspension on being satisfied that sufficient
material existed. The High Court in its meeting dated 19.07.2016
has resolved to send the complaint of the employee to the Internal
Complaints Committee and the Internal Complaints Committee
having opined that inquiry need to be held, further steps were
taken in accordance with Act, 2013. There is no error in the
B
decision of the Full Court dated 13.07.2016 to suspend the
petitioner and initiate the inquiry proceedings against the
petitioner. Preliminary Inquiry Report dated 05.11.2016 did not
contain any findings on allegations made against the petitioner,
Preliminary Inquiry Report only opined that inquiry should be
C held. The Inquiry Report, which has been referred to in Section
13 is an Inquiry Report, which has been submitted by Internal
Complaints Committee after completion of the inquiry. In the
present case, the Inquiry Report by Internal Complaints
Committee is dated 09.03.2018, which has been admittedly
supplied to the petitioner, the right of appeal given against the
D
recommendation made under sub-section(2) or sub-section(3) of
Section 13 are appealable under Section 18 of the Act. Thus, the
right of appeal is given to an aggrieved person only when report
is submitted under Section 13 to the employer. Section 13(3)
contemplates the report of Internal Complaints Committee when
E it “arrives at the conclusion that the allegation against the
respondent has been proved”. It is not the case of any of the
parties that the report of the Committee dated 05.11.2016 is the
report where allegation against the petitioner has been proved.
Even under Section 11(1) in the second proviso, the only
contemplation is to make available a copy of the findings. Thus,
F
when the report in which there are no findings, parties are not
entitled to have the copy. High Court in its counter affidavit has
pleaded that the Report dated 05.11.2016 was not a report
containing any findings against the petitioner rather only opinion
was expressed that disciplinary inquiry be initiated against the
G petitioner. No prejudice can be held to be caused to the petitioner
by non-supply of the Preliminary Inquiry Report dated 05.11.2016.
The copy of memo of charge dated 23.02.2017 has been brought
on the record, which also clearly indicates that the charge memo
does not refer to Preliminary Inquiry Report dated 05.11.2016.
Thus, no prejudice can be said to have been caused to the
H
DR. P. S. MALIK v. HIGH COURT OF DELHI 961
petitioner by non-supply of Report dated 05.11.2016. The A
submission of the counsel for the petitioner that due to non-supply
of Preliminary Inquiry Report dated 05.11.2016, the proceedings
have been vitiated, not accepted. With regard to charge memo
dated 23.02.2017, inquiry conducted by Internal Complaints
Committee culminating into Report dated 09.03.2018, it is open
B
for the petitioner to raise all pleas of facts and law before the
appropriate authority. This Court has only considered limited
issues as pressed by the petitioner. Apart from above, all
questions and issues are left open to both the parties.[Paras 22,
24- 26] [976-D-F; 978-A, E-H; 979-A-C]
State of West Bengal and Another v. Nripendra Nath C
Bagchi AIR 1966 SC 447 : [1966] 1 SCR 771; Registrar
(Admn.) High Court of Orissa, Cuttack v. Sisir Kanta
Satapathy (Dead) by LRs. and Another (1999) 7 SCC
725 : [1999] 2 Suppl. SCR 473 – followed.
State of Tamil Nadu Rep. by Secretary to Govt.(Home) D
v. Promod Kumar IPS and Another AIR 2018 SC 4060
– held inapplicable.
Baradakanta Mishra v. High Court of Orissa and
Another (1976) 3 SCC 327 : [1976] Suppl. SCR 561;
Rajendra Singh Verma (Dead) Through LRs. and Others E
v. Lieutenant Governor (NCT of Delhi) and Others
(2011) 10 SCC 1 : [2011] 12 SCR 496 – relied on.
Chief Justice of Andhra Pradesh and Others v. L.V.A.
Dixitulu and Others, (1979) 2 SCC 34 : [1979] 1 SCR
26 – referred to. F
Case Law Reference
[1966] 1 SCR 771 followed Para 9
[1976] Suppl. SCR 561 relied on Para 11
[1999] 2 Suppl.SCR 473 followed Para 12 G
[2011] 12 SCR 496 relied on Para 13
[1979] 1 SCR 26 referred to Para 15
AIR 2018 SC 4060 held inapplicable Para 17
H
962 SUPREME COURT REPORTS [2019] 12 S.C.R.
A CIVIL ORIGINAL JURISDICTION: Writ Petition (Civil)
No. 705 of 2018
Under Article 32 of The Constitution of India
Varinder Kumar Sharma, Ms. Parul Sharma, Yugal Kishore
Prasad, Advs. for the Petitioner.
B
P. S. Narsimha, Sr. Adv., Ms. Binu Tamta, Dhruv Tamta, Rahul
G. Tanwani, Ms. Sindoora VNL, Advs. for the Respondents.
The Judgment of the Court was delivered by
ASHOK BHUSHAN, J.
C
1. The petitioner, A Judicial Officer in Delhi Higher Judicial
Services, against whom disciplinary proceedings alleging sexual
harassment is underway, has filed this writ petition under Article 32 of
the Constitution of India praying for following reliefs:-
“a. issue a writ, order or direction in the nature of certiorari
D
quashing the resolution of Respondent No.1, the Full Court of
Delhi High Court dated 13.07.2016 inToto, cited in the report
dated 09.03.2018 (Annexure-P-12) and also all subsequent
resolutions passed by Full Court of Delhi High Court dated
19.07.2016, 16.11.2016, 23.02.2017, 06.07.2017 or on any other
E date in relation to this enquiry, cited in the report dated
09.03.2018 (Annexure-P- 12) as the same are arbitrary, without
any jurisdiction and violative of the provisions of Sexual
Harassment of Women at Workplace Prevention, Prohibition
and Redressal) Act of 2013, Art. 14 and Art. 21 of the
Constitution of India;
F
b. issue a writ, order or direction in the nature of certiorari
quashing the proceedings of ICC the Respondent number 2
as held by it under the Provisions of the Act of 2013.
c. issue a writ, order or direction in the nature of certiorari quashing
G the Charge sheet dated 23.02.2017 (Annexure-P-7) issued
by the Respondent No.1 on the recommendation of the
Respondent No.2;
d. issue a writ, order or direction in the nature of certiorari quashing
the report dated 9.3.2018 (Annexure-P-12) of the ICC, the
H
DR. P. S. MALIK v. HIGH COURT OF DELHI 963
[ASHOK BHUSHAN, J.]
2nd Respondent herein along with all the proceedings of the A
Respondents leading thereto;
e. issue a writ, order or direction in the nature of certiorari
quashing the letter of e Hon’ble Delhi High Court dated
15.05.2018 (Annexure-P-11) issued by Respondent No.1; and
f. pass any other writ, order or direction as this Hon’ble Court B
deems fit to grant in the interest of justice.”
2. Brief facts necessary for deciding this writ petition are:-
2.1 The petitioner has been working as Additional District Judge
at Dwarka, New Delhi. On 05.07.2016, a written complaint C
was submitted against the petitioner by a lady, Junior Judicial
Assistant (hereinafter referred to as “employee”) alleging
sexual harassment at work place. The complaint was
addressed to the Chief Justice of High Court of Delhi. The
Junior Judicial Assistant was working as Ahlmad in the Court
of the petitioner w.e.f. 18.05.2015. She continued to work in D
that capacity till 18.05.2016. Another complaint dated
11.07.2016 was submitted by the employee to the Chief
Justice. Complaint submitted by the employee came for
consideration before the Full Court of the High Court on
13.07.2016, which resolved as under:- E
i. The Judicial Officer be placed under suspension with
immediate effect pending disciplinary proceeding
contemplated against him.
ii. The Registrar General will forward the complaint dated
05.07.2016 to SHO of the concerned Police Station for F
appropriate action in accordance with law under intimation
to this Court.
iii. Registry to take steps in anticipation of the confirmation of
the Minutes.
2.2 The Full Court of the Delhi High Court by further resolution G
dated 19.07.2016 resolved to constitute an Internal Complaints
Committee consisting of five members to inquire into the
allegation of sexual harassment made against the petitioner.
The petitioner as well as the employee appeared before the
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964 SUPREME COURT REPORTS [2019] 12 S.C.R.
A Internal Complaints Committee (hereinafter referred to as
“Committee”). The petitioner was suspended by order dated
13.07.2016 pending disciplinary proceedings. The employee
further submitted a detailed statement dated 28.07.2016 before
the Committee. The petitioner submitted his reply to the
Committee on 02.09.2016. On 19.09.2016, the Committee
B
interacted with both the parties separately. On 05.11.2016,
the Committee submitted a Preliminary Report to the Full
Court. By its Report dated 05.11.2016, the Committee opined
that a disciplinary inquiry be held against the petitioner. Full
Court of the High Court in its meeting dated 16.11.2016
C resolved that the disciplinary proceedings for major penalty
under Rule 8 of All India Services (Discipline and Appeal)
Rules, 1969 be initiated against the petitioner.
2.3 The memo of charges dated 22/23.02.2017 was given to the
petitioner containing, article of charges and statement of
D imputations. The petitioner submitted written statement on
11.03.2017. The Full Court on 06.07.2017 considered the
written statement of defence dated 11.03.2017 of petitioner
and resolved to hold the inquiry. The Full Court resolved for
constituting a Committee in terms of Section 4 of the Sexual
Harassment of Women at Workplace (Prevention, Prohibition
E and Redressal) Act, 2013 (hereinafter referred to as “Act,
2013”) chaired by Hon’ble Ms. Justice Hima Kohli, who was
appointed as the Inquiring Authority.
2.4 The inquiry before the Inquiring Committee proceeded and
Report dated 09.03.2018 has been submitted by the Internal
F Complaints Committee. The Inquiry Report submitted by the
Committee was placed before the Full Court in its meeting
held on 25.04.2018 which resolved to forward the Inquiry
Report to the petitioner and to ask him to submit his written
submissions. Full Court in its meeting dated 01.08.2018 also
G resolved to supply certified copies of Full Court Meeting
Minutes dated 13.07.2016, 19.07.2016 and 16.11.2016 to the
petitioner. High Court also resolved that since the Preliminary
Inquiry Report dated 05.11.2016 has not been relied upon,
the same be not supplied to the petitioner. After receipt of
the Inquiry Report, the petitioner has filed this writ petition on
H 08.06.2018.
DR. P. S. MALIK v. HIGH COURT OF DELHI 965
[ASHOK BHUSHAN, J.]
3. We have heard Shri Varinder Kumar Sharma, learned counsel A
for the petitioner and Shri P.S. Narsimha, learned senior counsel for the
respondent.
4. Learned counsel for the petitioner contends that the Full Court
of the High Court on receiving the complaint dated 05.07.2016 did not
follow the procedure given in Act, 2013. It is submitted that Full Court B
ought to have handed over the complaint to the Internal Complaints
Committee for inquiry. Full Court erred in issuing three punitive directions
on 13.07.2016 against the petitioner. The order dated 13.07.2016 was
premature being before an inquiry or opportunity to the petitioner of
being heard. Further, they were passed by an authority, which had no
legal competence to pass those directions under the Delhi Higher Judicial C
Service Rules, 1970 and the All India Services Rules. There has been
blatant violation of Act, 2013 in the petitioner’s case vitiating the entire
procedure. The Committee after conducting the inquiry has submitted a
Report dated 05.11.2016, which report was required to be given to the
petitioner as per Act, 2013 but was denied to the petitioner. The D
Committee having not found proved the allegation against the petitioner,
Full Court ought not to have proceeded to impose penalty against the
petitioner. The respondents have wrongly assumed that they are the
disciplinary authority of the petitioner whereas under Rule 26A of the
Delhi Higher Judicial Service Rules, 1970 (hereinafter referred to as
“Rules, 1970”), the High Court has been debarred from having any right E
over the members of the service in matters relating to major penalties.
The charge memo dated 23.02.2017 was issued without even information
to the disciplinary authority, i.e., the Governor.
5. Shri Narsimha, learned senior counsel appearing for the
respondents submits that High Court having control over judicial officers F
under Article 235 of the Constitution, it did not lack jurisdiction in placing
the petitioner under suspension and directing for a regular disciplinary
inquiry. Inquiry having conducted by the Committee, which after holding
full-fledged inquiry, giving full opportunity to the petitioner has submitted
a Report dated 09.03.2018. The Inquiry Report dated 09.03.2018 was G
served on the petitioner by letter dated 16.05.2018, where petitioner
was asked to submit his written representation or statement within one
month, which has not yet been done. It is submitted that in view of the
fact that the petitioner has filed this petition in this Court and matter
being pending due to deference to this Hon’ble Court, no further steps
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966 SUPREME COURT REPORTS [2019] 12 S.C.R.
A have been taken in the inquiry. It is submitted that the Report dated
05.11.2016 was a Preliminary Report submitted by the Committee giving
opinion that the disciplinary inquiry be held, the said report being a
Preliminary Inquiry Report, it was not necessary to serve such report to
the petitioner. The Inquiry Report conducted as per Section 11 of the
Act, 2013 and as per Section 13, the copy of the report has been duly
B
served on the petitioner. Further, the Preliminary Inquiry Report dated
05.11.2016 was not taken into consideration for framing charges against
the petitioner and hence the High Court did not give a copy of the said
report to the petitioner.
6. We have heard the learned counsel for the parties and have
C perused the records.
7. At very outset, we indicated to the learned counsel for the
petitioner that the disciplinary proceedings against the petitioner being
still underway, having not yet taken any final shape, most of the issues,
which are sought to be raised by the writ petitioner in this writ petition
D can very well be canvassed and pressed before in the disciplinary
proceedings. We indicated that any expression of opinion by this Court
on issues, which are relevant and material in the disciplinary inquiry may
prejudice the parties.
8. Learned counsel for the petitioner specifically submitted that
E this Court may consider those submissions, which go to the very root of
the matter specially non-compliance of the provisions of Act, 2013. We
have already extracted the reliefs claimed in the writ petition. Claims in
the writ petition are very wide, which include quashing the proceedings
of Internal Complaints Committee as well as Charge Sheet dated
F 23.02.2017 and the Report dated 09.03.2018. We are of the view that
the petitioner having still opportunity in the disciplinary proceedings to
challenge the proceedings of the Internal Complaints Committee, the
charge sheet as well as the Inquiry Report dated 09.03.2018, we deem
it appropriate not to enter into above issues leaving it open to the petitioner
to raise all submissions and pleas before the appropriate authority. In
G this writ petition, we, however, proceed to examine only few limited
issues, which has been pressed by the petitioner. The only issues, which
we proceed to consider are:-
(i) Whether the High Court is a disciplinary authority of the
petitioner, competent to initiate the disciplinary proceedings
H
DR. P. S. MALIK v. HIGH COURT OF DELHI 967
[ASHOK BHUSHAN, J.]
against the petitioner and suspend him as per Delhi Higher A
Judicial Service Rules, 1970 and All India Services (Discipline
and Appeal) Rules, 1969?
(ii) Whether the decision of the Full Court on 13.07.2016 initiating
enquiry against the petitioner and placing him under suspension
was beyond jurisdiction? B
(iii) Whether the Preliminary Inquiry Report submitted by Internal
Complaints Committee dated 05.11.2016 ought to have been
supplied to the petitioner and non-supply of such Preliminary
Inquiry Report dated 05.11.2016 vitiated the entire
proceedings? C
Issue Nos. 1 and 2
9. Issue Nos.1 and 2 being connected are taken together. Part
VI of the Constitution of India deals with “The States”. Chapter VI
contains heading “Subordinate Courts”. Articles 233 and 235 of the
Constitution of India refers to two distinct powers. The first is power of D
appointment, posting and promotion of District Judges and second is
power of control over Judicial Officers of the State. The word “control”
occurring in Article 235 means not only the general superintendence of
the working of the Courts but includes the disciplinary control of the
judicial officers, i.e., the district judges and judges subordinate to him. E
The word “control” used in Article 235 has been held by this court to be
disciplinary control. A Constitution Bench of this Court in State of West
Bengal and Another Vs. Nripendra Nath Bagchi, AIR 1966 SC
447 had occasion to consider the nature of the control vested in the
High Court in Article 235 of the Constitution over district judges. In
paragraph No.13 following was held:- F
“15. We do not accept this construction. The word “control” is
not defined in the Constitution at all. In Part XIV which deals
with Services under the Union and the States the words “disciplinary
control” or “disciplinary jurisdiction” have not at all been used. It
is not to be thought that disciplinary jurisdiction of services is not G
contemplated. In the context the word “control” must, in our
judgment, include disciplinary jurisdiction. Indeed, the word may
be said to be used as a term of art because the Civil Services
(Classification Control and Appeal) Rules used the word “control”
and the only rules which can legitimately come under the word
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968 SUPREME COURT REPORTS [2019] 12 S.C.R.
A “control” are the Disciplinary Rules. Further, as we have already
shown, the history which lies behind the enactment of these Articles
indicate that “control” was vested in the 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
B
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
C 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……………………………”
D 10. The Constitution Bench further held that under Article 235 of
the Constitution, High Court can hold enquiries, impose punishments other
than dismissal or removal. In paragraph No. 18, following has been
held:-
“18. There is, therefore, nothing in Article 311 which compels the
E conclusion that the High Court is ousted of the jurisdiction to hold
the enquiry if Article 235 vested such a power in it. In our judgment,
the control which is vested in the High Court is a complete control
subject only to the power of the Governor in the matter of
appointment (including dismissal and removal) and posting and
promotion of District Judges. Within the exercise of the control
F 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, and 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
G opportunity is dispensed with by the Governor acting under the
provisos (b) and (c) to that clause. The High Court alone could
have held the enquiry in this case. To hold otherwise will be to
reverse the policy which has moved determinedly in this direction.”
11. To the same effect is another Three Judge Bench judgment of
H this Court is Baradakanta Mishra Vs. High Court of Orissa and
DR. P. S. MALIK v. HIGH COURT OF DELHI 969
[ASHOK BHUSHAN, J.]
Another, (1976) 3 SCC 327 where in paragraph No.20, following A
was laid down:-
“20. The scope of Article 235 has been examined by this Court in
several decisions. The important decisions are State of West
Bengal v. Nripendra Nath Bagchi, AIR 1966 SC 447; High
Court of Calcutta v. Amal Kumar Roy, AIR 1962 SC 1704; B
High Court of Punjab and Haryana v. State of Haryana (In
the matter of N.S. Rao), (1975) 1 SCC 843. The effect of the
decisions is this. The word “control” as used in Article 235 includes
disciplinary control over District Judges and judges inferior to the
post of District Judge. This control is vested in the High Court to
effectuate the purpose of securing independence of the C
subordinate judiciary and unless it included disciplinary control as
well the very object would be frustrated. The word “control” is
accompanied by the word “vest” which shows that the High Court
is made the sole custodian of the control over the judiciary. Control
is not merely the power to arrange the day-to-day working of the D
court but contemplates disciplinary jurisdiction on the presiding
judge. The word “control” includes something in addition to the
mere superintendence of these courts. The control is over the
conduct and discipline of judges. The inclusion of a right of appeal
against the orders of the High Court in the conditions of service
indicates an order passed in disciplinary jurisdiction. The word E
“deal” in Article 235 also indicates that the control is over
disciplinary and not mere administrative jurisdiction. The control
which is vested in the High Court is complete control subject only
to the power of the Governor in the manner of appointment
including initial posting and promotion of District Judges and F
dismissal, removal, reduction in rank of District Judges. 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 G
Article 311 unless such an opportunity is dispensed with by the
Governor acting under the provisos (b) and (c) to that clause.
The High Court alone could make enquiries into disciplinary
conduct.”
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970 SUPREME COURT REPORTS [2019] 12 S.C.R.
A 12. Another Constitution Bench in Registrar (Admn.), High
Court of Orissa, Cuttack Vs. Sisir Kanta Satapathy (Dead) by
Lrs. and Another, (1999) 7 SCC 725 after reviewing all earlier
judgments, laid down following in paragraph No.16:-
“16. We are clearly of the view that while the High Court retains
B the power of disciplinary control over the subordinate judiciary,
including the power to initiate disciplinary proceedings, suspend
them pending enquiries and impose punishment on them but when
it comes to the question of dismissal, removal, reduction in rank or
termination of the services of the judicial officer, on any count
whatsoever, the High Court becomes only the recommending
C authority and cannot itself pass such an order (vide Inder Prakash
Anand case, (1976) 2 SCC 977 and Rajiah case, (1988) 3
SCC 211).”
13. We may also refer to another judgment of this Court in
Rajendra Singh Verma (Dead) through LRs. and Others Vs.
D Lieutenant Governor (NCT of Delhi) and Others, (2011) 10 SCC
1. This Court in the above case had occasion to consider control of
Article 235 over the judicial officers of NCT of Delhi. This Court after
elaborating the control of the High Court with reference to judicial officers
of NCT Delhi had laid down that High Court alone is the sole authority
E competent to initiate disciplinary proceedings against Subordinate Judicial
Officers or to impose various punishments. The contentions raised before
the Court based on Article 239AA(4) of the Constitution that the Scheme
in NCT Delhi is different was rejected. Following was laid down in
paragraph No.136:-
F “136. Reliance on Article 239-AA(4) is entirely out of place so
far as the High Court is concerned, dealing with the judicial officers.
To give any other interpretation to Article 239-AA(4) will be to
defeat the supreme object underlying Article 235 of the Constitution,
specially intended for protection of the judicial officers and
necessarily independence of the subordinate judiciary. It is
G absolutely clear that the Governor cannot take the aid and advice
of his Council of Ministers in the case of judicial officers and
accept its advice and act according to it. There is no room for any
outside body between the Governor and the High Court. Therefore,
this Court does not find any substance in this contention also and
H the same is rejected.”
DR. P. S. MALIK v. HIGH COURT OF DELHI 971
[ASHOK BHUSHAN, J.]
14. In the above case, it has been clearly and categorically laid A
down that disciplinary authority with regard to judicial officers is the
High Court and it is the High Court, which can initiate the disciplinary
proceedings against judicial officers. Although, with regard to dismissal,
removal or reduction in rank or termination of services of judicial officers,
the High Court becomes the recommending authority and it is the
B
Governor, who is to issue the orders.
15. Learned counsel for the petitioner has placed reliance on a
Constitution Bench judgment of this Court in Chief Justice of Andhra
Pradesh and Others Vs. L.V.A. Dixitulu and Others, (1979) 2
SCC 34. The above case was a case of employees of a High Court.
This Court had occasion to interpret the scope of Article 235. In paragraph C
40 of the judgment, few incidents of control vested in the High Court
were enumerated. Paragraph 40 is as follows:
“40. The interpretation and scope of Article 235 has been the
subject of several decisions of this Court. The position crystallised
by these decisions is that the control over the subordinate judiciary D
vested in the High Court under Article 235 is exclusive in nature,
comprehensive in extent and effective in operation. It comprehends
a wide variety of matters. Among others, it includes:
(a) (i) Disciplinary jurisdiction and a complete control subject
only to the power of the Governor in the matter of appointment, E
dismissal, removal, reduction in rank of District Judges, and
initial posting and promotion to the cadre of District Judges. In
the exercise of this control, the High Court can hold inquiries
against a member of the subordinate judiciary, impose
punishment other than dismissal or removal, subject, however, F
to the conditions of service, and a right of appeal, if any, granted
thereby and to the giving of an opportunity of showing cause
as required by Article 311(2).
(ii) In Article 235, the word ‘control’ is accompanied by the
word “vest” which shows that the High Court alone is made G
the sole custodian of the control over the judiciary. The control
vested in the High Court, being exclusive, and not dual, an
inquiry into the conduct of a member of judiciary can be held
by the High Court alone and no other authority. (State of West
Bengal v. Nripendra Nath Bagchi (supra); Shamsher Singh v.
H
972 SUPREME COURT REPORTS [2019] 12 S.C.R.
A State of Punjab (1974) 2 SCC 831; Punjab and Haryana High
Court v. State of Haryana (sub nom Narendra Singh Rao,(1975)
1 SCC 831).
(iii) Suspension from service of a member of the judiciary, with
a view to hold a disciplinary inquiry.
B (b)Transfers, promotions and confirmation of such promotions
of persons holding posts in the judicial service, inferior to that
of District Judge. (State of Assam v. S.N. Sen, (1971) 2 SCC
899, State of Assam v. Kuneswar Saikia, (1969) 3 SCC 505).
(c) Transfers of District Judges [State of Assam v. Ranga
C Muhammad (supra); Chandra Mouleshwar v. Patna High Court
(supra)].
(d) Recall of District Judges posted on ex-cadre posts or on
deputation on administrated posts. (State of Orissa v. Sudhansu
Sekhar Misra, AIR 1968 SC 647).
D
(e) Award of Selection grade to the members of the judicial
service, including District Judges it being their further promotion
after their initial appointment to the cadre. (State of Assam v.
Kuseswar Saikia (supra).
(f) Confirmation of District Judges, after their initial appointment
E
or promotion by the Governor to the cadre of District Judges
under Article 233, on probation or officiating basis. [Punjab &
Haryana High Court v. State of Haryana (supra)].
(g) Premature or compulsory retirement of Judges of the District
Court and of Subordinate Courts (State of U.P. v. Batuk Deo
F
Pati Tripathi and Anr. (supra).”
16. In the above case also, this Court held that the disciplinary
jurisdiction vests in the High Court which can hold inquiries against a
member of the subordinate judiciary, impose punishment other than
dismissal or removal. The High Court can also suspend a member of the
G judiciary. Insofar as dismissal or removal is concerned, the said orders
are required to be passed by the Governor on the recommendation of
the High Court. The fact that the orders of dismissal or removal are
issued by the approval of the Governor in no manner denude the
disciplinary control of the High Court.
H
DR. P. S. MALIK v. HIGH COURT OF DELHI 973
[ASHOK BHUSHAN, J.]
17. Another judgment relied on by the learned counsel for the A
petitioner is State of Tamil Nadu Rep. by Secretary to Govt.(Home)
Vs. Promod Kumar IPS and Another, AIR 2018 SC 4060. The
above was a case of the member of Indian Police Service. This Court
had occasion to consider the provisions of All India Services (Discipline
and Appeal) Rules, 1969 in the context of member of Indian Police Service.
B
Learned counsel for the petitioner has placed reliance on paragraphs 18
and 19, which are to the following effect:
“18. Rule 8(4) of the All India Service (Discipline and Appeal)
Rules, 1969 also mandates that the disciplinary authority shall
“draw up or cause to be drawn up” the charge memo. We see no
reason to take a view different from the one taken by this Court C
in B.V. Gopinath (AIR 2014 SC 88)(supra). We also see no
substance in the submission made by the Senior Counsel for the
State that the said judgment needs reconsideration. Assuming that
Mr. Giri is right in his submission that the initiation of disciplinary
proceedings and issuance of charge memo are at the same stage, D
the mandatory requirement of Rule 8 which provides for the charge
memo to be drawn by the disciplinary authority cannot be ignored.
We reject the submission on behalf of the Appellant that Gopinath’s
case can be distinguished on facts. We are not in agreement with
the contention of the Appellant that the business Rules and standing
orders of the State of Tamil Nadu are quite different from the E
office orders and circulars issued by Union of India which formed
the basis of the judgment in Gopinath’s case. A close reading of
the said judgment would disclose that reliance on the office note
was only in addition to the interpretation of the Rule.
19. It is also settled law that if the Rule requires something to be F
done in a particular manner it should be done either in the same
manner or not at all- Taylor v. Taylor (1875) 1 Ch. D. 426, 431. In
view of the mandatory requirement of Rule 8(4) and the charge
memo being drawn up or cause to be drawn up by the disciplinary
authority is not complied with, we are of the considered opinion G
that there is no reason to interfere with the judgment of the High
Court on this issue. The only addition we would like to make is to
give liberty to the disciplinary authority to issue a charge memo
afresh after taking approval from the disciplinary authority.”
H
974 SUPREME COURT REPORTS [2019] 12 S.C.R.
A 18. In the above case, charge memo was not drawn by the
disciplinary authority, hence, this Court approved the decision of the High
Court quashing charge-sheet. The above case is not applicable in the
present case. The petitioner in the present case is a member of Judicial
Service for which disciplinary authority is the High Court.
B 19. The submission, which has been pressed by the petitioner is
that in view of Act, 2013 there being an Inquiry Report by Internal
Complaints Committee as envisaged by Sections 11 and 13, the High
Court could not have taken a decision to initiate the inquiry or to suspend
the petitioner. The Act, 2013 was to provide protection against sexual
harassment of women at workplace and for the prevention and redressal
C of complaints of sexual harassment and for matters connected therewith
or incidental thereto. Chapter II of Act, 2013 deals with constitution of
Internal Complaints Committee. Chapter IV deals with complaint. In
Chapter IV, one of the sections is Section 11, which deals with inquiry
into complaint. Section 11 of the Act is as follows:-
D “11. Inquiry into complaint.— (1) Subject to the provisions of
section 10, the Internal Committee or the Local Committee, as
the case may be, shall, where the respondent is an employee,
proceed to make inquiry into the complaint in accordance with
the provisions of the service rules applicable to the respondent
E and where no such rules exist, in such manner as may be prescribed
or in case of a domestic worker, the Local Committee shall, if
prima facie case exist, forward the complaint to the police, within
a period of seven days for registering the case under section 509
of the Indian Penal Code (45 of 1860), and any other relevant
provisions of the said Code where applicable:
F
Provided that where the aggrieved woman informs the
Internal Committee or the Local Committee, as the case may be,
that any term or condition of the settlement arrived at under sub-
section (2) of section 10 has not been complied with by the
respondent, the Internal Committee or the Local Committee shall
G proceed to make an inquiry into the complaint or, as the case may
be, forward the complaint to the police:
Provided further that where both the parties arc employees,
the parties shall, during the course of inquiry, be given an opportunity
H
DR. P. S. MALIK v. HIGH COURT OF DELHI 975
[ASHOK BHUSHAN, J.]
of being heard and a copy of the findings shall he made available A
to both the parties enabling them to make representation against
the findings before the Committee.
XXXXXXXXXXXXXXXX”
20. Chapter V deals with inquiry into complaint and Section 13
deals with inquiry report, which is to the following effect:- B
“13. Inquiry Report.—(1) On the completion of an inquiry
under this Act, the Internal Committee or the Local Committee,
as the case may be, shall provide a report of its findings to the
employer, or as the case may be, the District Officer within a
period of ten days from the date of completion of the inquiry and C
such report be made available to the concerned parties.
(2) Where the Internal Committee or the Local Committee, as
the case may be, arrives at the conclusion that the allegation
against the respondent has not been proved, it shall recommend
to the employer and the District Officer that no action is required D
to be taken in the matter.
(3) Where the Internal Committee or the Local Committee, as
the case may be, arrives at the conclusion that the allegation
against the respondent has been proved, it shall recommend to
the employer or the District Officer, as the case may be— E
(i) to take action for sexual harassment as a misconduct in
accordance with the provisions of the service rules
applicable to the respondent or where no such service rules
have been made, in such manner as may be prescribed;
F
(ii) to deduct, notwithstanding anything in the service rules
applicable to the respondent, from the salary or wages of
the respondent such sum as it may consider appropriate to
be paid to the aggrieved woman or to her legal heirs, as it
may determine, in accordance with the provisions of section
15: G
Provided that in case the employer is unable to make such
deduction from the salary of the respondent due to his being absent
from duty or cessation of employment it may direct to the
respondent to pay such sum to the aggrieved woman:
H
976 SUPREME COURT REPORTS [2019] 12 S.C.R.
A Provided further that in case the respondent fails to pay the sum
referred to in clause (ii), the Internal Committee or as the case
may be, the Local Committee may forward the order for recovery
of the sum as an arrear of land revenue to the concerned District
Officer.
B (4) The employer or the District Officer shall act upon the
recommendation within sixty days of its receipt by him.”
21. The Act, 2013 is a parliamentary legislation, the preamble of
which outlines the necessity of legislation, which is to the following effect:-
“An Act to provide protection against sexual harassment of women
C at workplace and for the prevention and redressal of complaints
of sexual harassment and for matters connected therewith or
incidental thereto.”
22. The provisions of the Act, complaint mechanism and
mechanism for constitution of the Internal Complaints Committee,
D mechanism to inquire the complaint are all for protection of dignity and
welfare of women at workplace. The provisions of Sections 11 and 13
in no manner affect the control of the High Court under Article 235,
which it has with respect to judicial officers as noted above. The power
to suspend the judicial officer vests in the High Court. The Full Court of
E the High court is in no manner precluded from initiating disciplinary inquiry
against the petitioner and placing the petitioner under suspension on being
satisfied that sufficient material existed. The High Court in its meeting
dated 19.07.2016 has resolved to send the complaint of the employee to
the Internal Complaints Committee and the Internal Complaints
Committee having opined that inquiry need to be held, further steps were
F taken in accordance with Act, 2013. We, thus, are of the view that there
is no error in the decision of the Full Court dated 13.07.2016 to suspend
the petitioner and initiate the inquiry proceedings against the petitioner.
Issue No.3
23. The submission on which much emphasis has been made by
G
the petitioner is that the copy of the Report dated 05.11.2016 referred to
as a Preliminary Inquiry Report by the High Court has not been supplied
to the petitioner by which he has been denied right to appeal. With regard
to Preliminary Inquiry Report dated 05.11.2016, in paragraph Nos. 48
and 49, the High Court has made following assertions:-
H
DR. P. S. MALIK v. HIGH COURT OF DELHI 977
[ASHOK BHUSHAN, J.]
“48-49. The contents of para 48-49 are wrong and denied. The A
Petitioner is under the erroneous belief that the report dated
05.11.2016 which is only a Preliminary Inquiry Report should have
been made available to him. That the inquiry has been conducted
strictly in compliance with the procedure laid down in All India
Services (Discipline & Appeal) Rules, 1965 and Office
B
Memorandum dated 16.07.2015 issued by Department of
Personnel & Training, Ministry of Personnel, Public Grievances
and Pensions, Govt. of India. As per the said Office Memorandum,
the ICC firstly conducted preliminary investigation/inquiry and then
submitted its Preliminary Inquiry Report dated 05.11.2016 before
the Disciplinary Authority. There is no provision to provide the C
copy of Preliminary Inquiry Report to the Delinquent. It is also
pertinent to mention here that the Petitioner had been provided
with a copy of the Inquiry Report dated 09.03.2018 submitted by
the Inquiring Authority after conducting regular inquiry as per the
procedure laid down in the All India Services (Discipline & Appeal)
D
Rules, 1969, with a direction to submit his written representation
or submissions, if he so desires, against the findings of the Inquiring
Authority. However, instead of submitting his written representation
or submissions, the Petitioner chose to file the instant writ petition
before this Hon’ble Court. Thus, it is made clear here that there
was no discrepancy in the Preliminary Inquiry/investigation by E
the ICC. The Report dated 05.11.2016 was a Preliminary Inquiry
Report the purpose of which is only to satisfy the Disciplinary
Authority as to whether any prima facie case is made out against
the Petitioner. The Full Court, after considering the Preliminary
Inquiry Report dated 05.11.2016, resolved vide its decision dated
F
16.11.2016 to initiate disciplinary proceedings for major penalty
under Rule 8 of the All India Services (Discipline & Appeal) Rules,
1969 against the Petitioner.”
24. In view of the above, it is clear that Preliminary Inquiry Report
dated 05.11.2016 did not contain any findings on allegations made against
the petitioner, Preliminary Inquiry Report only opined that inquiry should G
be held. The Inquiry Report, which has been referred to in Section 13 is
an Inquiry Report, which has been submitted by Internal Complaints
Committee after completion of the inquiry. In the present case, the
Inquiry Report by Internal Complaints Committee is dated 09.03.2018,
H
978 SUPREME COURT REPORTS [2019] 12 S.C.R.
A which has been admittedly supplied to the petitioner, the right of appeal
given against the recommendation made under sub-section(2) or sub-
section(3) of Section 13 are appealable under Section 18 of the Act.
Section 18 of the Act is as follows:-
“18.Appeal.— (1) Any person aggrieved from the
B recommendations made under sub-section (2) of section 13 or
under clause (i) or clause (ii) of sub-section (3) of section 13 or
subsection (1) or sub-section (2) of section 14 or section 17 or
non-implementation of such recommendations may prefer an
appeal to the court or tribunal in accordance with the provisions
of the service rules applicable to the said person or where no
C such service rules exist then, without prejudice to provisions
contained in any other law for the time being in force, the person
aggrieved may prefer an appeal in such manner as may he
prescribed.
(2) The appeal under sub-section (1) shall be preferred within a
D period of ninety days of the recommendations.”
25. Thus, the right of appeal is given to an aggrieved person only
when report is submitted under Section 13 to the employer. Section
13(3) contemplates the report of Internal Complaints Committee when
it “arrives at the conclusion that the allegation against the respondent
E has been proved”. It is not the case of any of the parties that the report
of the Committee dated 05.11.2016 is the report where allegation against
the petitioner has been proved. Even under Section 11(1) in the second
proviso, the only contemplation is to make available a copy of the findings.
Thus, when the report in which there are no findings, parties are not
F entitled to have the copy. High Court in its counter affidavit has pleaded
that the Report dated 05.11.2016 was not a report containing any findings
against the petitioner rather only opinion was expressed that disciplinary
inquiry be initiated against the petitioner. We, thus, are of the view that
no prejudice can be held to be caused to the petitioner by non-supply of
the Preliminary Inquiry Report dated 05.11.2016. The copy of memo of
G charge dated 23.02.2017 has been brought on the record, which also
clearly indicates that the charge memo does not refer to Preliminary
Inquiry Report dated 05.11.2016. Thus, no prejudice can be said to have
been caused to the petitioner by non-supply of Report dated 05.11.2016.
We, thus, do not accept the submission of learned counsel for the petitioner
H
DR. P. S. MALIK v. HIGH COURT OF DELHI 979
[ASHOK BHUSHAN, J.]
that due to non-supply of Preliminary Inquiry Report dated 05.11.2016, A
the proceedings have been vitiated.
26. Before we close, we once more make it clear that with regard
to charge memo dated 23.02.2017, inquiry conducted by Internal
Complaints Committee culminating into Report dated 09.03.2018, it is
open for the petitioner to raise all pleas of facts and law before the B
appropriate authority. This Court has only considered limited issues as
pressed by the petitioner as indicated above. Apart from above, all
questions and issues are left open to both the parties. Subject to
observations and liberty as above, the Writ Petition is dismissed.
C
Divya Pandey Writ Petition dismissed.
D
E
F
G
H
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