2017 Supreme(MP) 500

IN THE HIGH COURT OF MADHYA PRADESH
(FULL BENCH)
Hemant Gupta, C.J., Sujoy Paul and Subodh Abhyankar, JJ.
Ram Sewak Mishra v. State of M.P. and another
Writ Petition No.1353 of 2011(Jabalpur);Decided on 18.7.2017

Headnote:(1) Natural Justice -- applicability of principles -- can be excluded by necessary implication -- requirement of providing hearing opportunity -- generally read into provisions of statute -- particularly when order affects personal rights adversely -- before passing such order -- hearing opportunity should be provided -- rule of audi alteram partem -- is rule of law -- without which law would be lifeless -- majority view -- hearing opportunity should be provided.

       Per Hemant Gupta, C.J. and Subodh Abhyankar, J.

       Held : We find that though the applicability of principals of natural justice can be excluded by necessary implication but the requirement of giving reasonable opportunity of being heard before an order is made, is generally read into the provisions of a statute, particularly when the order has adverse civil consequences relating to infraction of property, personal rights and material deprivations for the party affected. The rule of audi alteram partem is the rule of the law without which law would be lifeless, absurd, stultifying, self-defeating or plainly contrary to the common sense of the situation. The principle holds good irrespective of whether the power conferred on a statutory body or Tribunal is administrative or quasi-judicial.

       (2) Civil Services (Pension) Rules, 1976 (M.P.) -- R.8(1),(2) and (3) -- Prevention of Corruption Act, 1988 -- S.7-- petitioner convicted for offence under -- appeal pending and sentence suspended -- he attained age of superannuation -- anticipatory pension granted -- whether without providing hearing opportunity -- entire pension can be withheld under rule 8 -- pension is not bounty -- but benefit earned by him by serving State for many years -- deprivation of such pension affects civil rights of pensioner -- though rule 8(2) is silent about opportunity of hearing -- even so show cause notice is required to be given to retired Government servant convicted by criminal Court.

       Per Majority --

       Held : The judgment of Full Bench in the case of Laxmi Narayan Hayaran’s case (supra), deals with a situation of termination of an employee on account of conviction in a criminal trial. The said judgment of dispensing with the opportunity of hearing to a pensioner cannot be extended to a case of stoppage of pension.

       The pensioner is entitled to pension in view of his past service under the State. An employee earns his pension. Pension is not a bounty, but a benefit earned by him by serving State for many years. The deprivation of such pension affects civil rights of the pensioner, the means of survival. Though sub-rule (2) of rule 8 of the Pension Rules is silent about opportunity of hearing, but neither the dispensing with an opportunity of hearing is urgent nor is any other purpose expected to be achieved by denying the benefit of opportunity of hearing.

       If an opportunity of hearing is granted, an employee can point out the mitigating family circumstance, the role in the criminal trial which led to his conviction or other circumstances as to why the pension should not be stopped and that too for life. Therefore, in case of a pensioner, the rule of natural justice would warrant an opportunity of hearing, at least of serving a show cause and elucidating the reply of the pensioner and thereafter, pass an order as may be considered appropriate by the authority so as to enable the appellate authority or the judicial Courts to test the legality of the same while exercising the powers of the judicial review.

       Thus, the first question of law is answered that a show cause notice is required to be given to the retired Government servant convicted by the criminal Court. As a consequence thereof, we find that the order passed by this Court in the case of Dau Ram Maheshwar (supra), is correctly decided. 2017(1) MPLJ 640 affirmed. 2005(1) JLJ 125 (FB) and 1994 JLJ 587 (SC) distinguished. (1978)1 SCC 405, (1981)1 SCC 664 and (2011)2 SCC 258 followed. (1970)2 SCC 458, AIR 1967 SC 1269, (1971)2 SCC 330, (1973)1 SCC 120, (1976)2 SCC 1, (1987)2 SCC 179 and (2007)2 SCC 181 referred to. (1985)3 SCC 398, discussed. [Para 16

       (3) Interpretation of Statutes -- rule of -- depend on text and context -- neither can be ignored -- both are important -- best interpretation is which makes textual interpretation match contextual.

       Per Sujoy Paul, J. (Dissenting)

       Held : The golden rule of interpretation of a statute is that interpretation must depend on the text and the context. Neither can be ignored. Both are important. That interpretation is best which makes the textual interpretation match the contextual. (1987)1 SCC 424, referred to.

       (4) Civil Services (Pension) Rules, 1976 (M.P.) -- R.8(1), (2) and (3) -- Prevention of Corruption Act, 1988 -- S.7-- retired convicted servant under -- without providing hearing opportunity -- whether pension can be withheld -- principles of natural justice -- applicability of -- rule 8(2) does not expressly excludes -- under rule 8(3) -- principles of natural justice inserted in mandatory form -- rule 8(2) impliedly excluded principles of natural justice -- providing hearing opportunity to such servant -- not required -- decision needs to be taken by competent authority in light of judgment relating to such conviction.

       Per Sujoy Paul, J. (Dissenting)

       Held : In my view sub-rule (2) of rule 8 does not expressly excludes the application of principles of natural justice. Sub-rule (3), as noticed, provides an opportunity of hearing when competent authority considers that pensioner is prima facie guilty of grave misconduct. In sub-rule (3), principles of natural justice were inserted in a mandatory form, whereas in sub-rule (2), it is provided that action shall be taken in the light of the judgment of the Court relating to such conviction. In the manner sub-rule (2) is worded, in my considered opinion, it has impliedly excluded the principles of natural justice.

       In my considered opinion, neither in rule 19 of CCA rules nor in sub-rule (2) of rule 8, principles of natural justice can be read into. Indeed, principles of natural justice are excluded by implication in both the aforesaid provisions for same reasons. The sole basis of decision of competent authority will depend upon judgment of conviction arising out of conduct/crime of delinquent.

       In view of aforesaid analysis, my opinion regarding question No.1 is that no opportunity of hearing is required to be given to a retired Government servant before taking a decision under sub-rule (1) of rule 8 and such decision needs to be taken by competent authority in the light of the judgment of the Court relating to such conviction. Since rule 8(2) impliedly excludes the principles of natural justice, this Court cannot ignore the mandate of statutory authority and read into the provision concern the principles of natural justice. (1970)2 SCC 458, (1978)1 SCC 248, (1994)5 SCC 267 and (2010)13 SCC 255 followed. (1976)3 SCC 190 referred to. (1985)3 SCC 398 discussed.

       [Para 16

       Majority opinion--

       In view of the majority opinion, it is held that opportunity of hearing is required to be provided before an order of stoppage of pension is passed under section 8(2) of the Civil Services (Pension) Rules, 1976 and that judgment of Dau Ram Maheshwar v. State of M.P. and another, reported as [(2017)1 MPLJ 640], is correctly decided. (2017)1 MPLJ 640 affirmed.

        ¼1½ uSlfxZd U;k; && fl)kar dk ykxw gksuk && vko';d foo{kk }kjk vioftZr fd;k tk ldrk gS && lquokbZ dk volj iznku djus dh vis{kk lkekU;r% dkuwu ds mica/kksa esa i<+h tkrh gS && fo'ks"kr% tc vkns'k O;fDrxr vf/kdkj izfrdwy :i ls izHkkfor djrk gS && ,slk vkns'k ikfjr djus ls ioZ && lquokbZ dk volj iznku fd;k tkuk pkfg, && fdlh O;fDRk ds fo:) fu.kZ; nsus ls iwoZ mls lquuk vfuok;Z gS dk fu;e && fof/k dk fu;e gS && ftlds fcuk fof/k fu%lRo gksxh && cgqer jk; && lquokbZ dk volj iznku fd;k tkuk pkfg,A

       eq[; U;k- gsear xqIrk RkFkk U;k- lqcks/k vH;adj &&

       vfHkfu/kkZfjr % ge ikrs gS fd uSlfxZd U;k; ds fl)kar dk ykxw gksuk vko'd foo{kk }kjk vioftZr fd;k tk ldrk gS fdarq vkns'k fd, tkus ls iwoZ lquokbZ dk volj nsus dh vis{kk] lkekU;r% dkuwu ds mic/akksa esa i<+h tkrh gS] fo'ks"kr% tc vkns'k LoRo ds O;frØe ds lac/k esa izfrdwy flfoy ifj.kke j[krk gS] O;fDrxr vf/kdkj vkSj i{kdkj ds fy, vkfFkZd gkfu igqWpkrk gSA fdlh O;fDr ds fo:) fu.kZ; nsus ds iwoZ mls lquuk vfuok;Z gS dk fu;e fof/k dk fu;e gS ftlds fcuk fof/k] fu%lRo] vFkZghu] fujFkZd ;k Li"V;k lkekU; cqf) dh vofLFkfr ds izfrdwy gSA dkuwuh fudk; ;k vf/kdj.k dks iznŸk 'kfDr pkgs iz'kklfud ;k U;kf;d dYi dh gks bldk /;ku fn, fcuk fu;e leqfpr gSA

       ¼2½ flfoy lsok isa'ku fu;e] 1976 ¼e-iz-½ && fu-8¼1½¼2½ rFkk ¼3½ && Hkz"Vkpkj fuokj.k vf/kfu;e] 1988 && /kkjk 7 && ;kph mica/k ds v/khu vijk/k ds fy, fl)nks"k Bgjk;k x;k && vihy yafcr rFkk naM+kns'k fuyafcr && mlus vf/kof"kZrk dh vk;q iw.kZ dh && izR;kf'kr isa'ku iznku dh xbZ && D;k lquokbZ dk volj iznku fd, fcuk && fu;e 8 ds v/khu laiw.kZ isU'ku jksdh tk ldrh gS && isa'ku dksbZ mnkj nku ugha gS && cfYd jkT; dh vusd o"kZ lsok djus ls@mls ykHk vfTkZr gqvk gS && ,slh isa'ku ls oafpr djus ls isa'kuj ds flfoy vf/kdkj izHkkfor gksrs gS && ;|fi fu;e 8¼2½ lquokbZ ds volj ds fo"k; esa ekSu gS && rc Hkh naM+ U;k;ky; }kjk fl)nks"k Bgjk, x, lsok fuo`Ÿk ljdkjh lsod dk dkj.k crkvks lwpuk fn;k tkuk visf{kr gSA

       eq[; U;k- gsear xqIrk rFkk U;k] lqcks/k vH;adj &&

       vfHkfu/kkZfjr % y{ehukjk;.k g;kj.k ds ekeys es a¼iwoksZDr½ iw.kZ U;k;ihB ds fu.kZ; esa nkafM+d fopkj.k esa fl)nks"k deZpkjh dh lsok lekfIr dh fLFkfr ij fopkj fd;k x;k gSA is'kuj dks lquokbZ ds volj ls vfHkeqDr djus dk mi;qZDr fu.kZ; jksdus ds ekeys es ykxw ugha fd;k tk ldrkA

       ;kph jkT; ds v/khu xr lsok dh n`f"V ls is'ku dk gd~nkj gSA deZpkjh viuh isa'ku mikftZr djrk gS isa'ku mnkjrk dk nku ugh gS] cfYd mlds }kjk jkT; dks vusd o"kZ nh xbZ lsokvksa dk ykHk gSA ,slh isa'ku ls oafapr djuk mlds flfoy vf/kdkjksa dks] mŸkjthfork ds lk/ku dks izHkkfor djrk gSA ;|fi isa'ku fu;eksa ds fu;e 8 dk mi&fue ¼2½ lquokbZ ds volj ds fo"k; esa ekSUk gS] fdUrq lquokbZ dk volj ls vfHkeqDRk djuk vR;ko';d ugha gS vkSj u gh lquokbZ ds Qk;nk ls badkj djus ls dksbZ vU; iz;kstu izkIr djuk visf{kr gSA

       ;fn lquokbZ dk volj iznku fd;k tkrk gS] deZpkjh vius dqVqac dh de djus okyh ifjfLFkfr;kW crk ldrk gS] nkafM+d fopkj.k esa Hkwfedk ftlls mls fl) nks"k Bgjk;k gS ;k vU; ifjfLFkfr;ksa tSls fd isU'ku D;ksa ugh jksdh tkuh pkfg, vkSj og Hkh thou ds fy,A blfy,] ;kph ds ekeys es uSlfxZd U;k; dk fu;e lquokbZ ds volj dk vf/kdkj nsxk] de ls de dkj.k crkvks lwpuk dk fuokZg djuk vkSj ;kph ds tokc ij Li"Vhdj.k fn;k tkuk vkSj rRi'pkr~ izkf/kdkjh }kjk tSlk mfpr le>k tk, vkns'k ikfjr fd;k tk, ftlls fd tc dHkh vihy izkf/kdkjh ;k U;kf;d U;k;ky; iqufoZyksdu dh 'kfDRk dk iz;ksx dj mldh oS|rk dk ijh{k.k djus esa leFkZ gks ldsA

       bl izdkj] fof/k ds izFke iz'u dk mŸkj fn;k tkrk gS fd naM+ U;k;ky; }kjk fl)nks"k Bgjk, x, lsok fuo`Ÿk ljdkjh lsod dks dkj.k crkvks lwpuk fn;k tkuk visf{kr gSA blds ifj.kkeLo:i] ge ikrs gSA 2017¼1½ ,e ih ,y ts 640 vfHkiq"VA 2005 ¼1½ ts ,y ts 125 ¼iw.kZ U;k;ihB½ rFkk 1994 ts ,y ts 587 ¼mPpre U;k-½ izHksfnrA ¼1978½ 1 ,Lk lh lh 405] ¼1981½ 1 ,y lh lh 664 rFkk ¼2011½ 2 ,l lh lh 258 vuqlfjrA ¼1970½ 2 ,l lh lh 458] , vkb vkj 1967 ,l lh 1269] ¼1971½ 2 ,l lh lh 330] ¼1973½ 1 ,l lh lh 120] ¼1976½ 2 ,l lh lh 1] ¼1987½ 2 ,l lh lh 179 rFkk ¼2007½ 2 ,l lh lh 181 fufnZ"VA ¼1985½ 3 ,l lh lh 398 foosfprA

       ¼3½ fof/k dk fuoZpu && dk fu;e && ikB vkSj lanHkZ ij fuHkZj djrk gS && fdlh dh Hkh mis{kk ugha dh tk ldrh && nksuksa egRoiw.kZ gSa && lcls vPNk fuoZpu og gS tks ewyikB&fo"k;d fuoZpu dks izklafxd ds vuwdwy cukrk gSA

       U;k- lqtkW; ikWy ¼foLkEer½ &&

       vfHkfu/kkZfjr % fof/k ds fuoZpu dk Lof.kZe fu;e gS] fd fuoZpu ikB vkSj lanHkZ ij fuHkZj djrk gS fdlh dh Hkh mis{kk ugha dh tk ldrhA nksuksa gh egRoiw.kZ gSA lcls vPNk fuoZpu og gS tks ewyikB&&fo"k;d fuoZpu dks izklafxd ds vuqdwy cukrk gSA ¼1987½ 1 ,l lh 424 fufnZ"VA

       flfoy lsok ¼isU'ku½ fu;e] 1976 ¼e-iz-½ && fu-8¼1½] ¼2½ RkFkk ¼3½ && Hkz"Vkpkj fuokj.k vf/kfu;e] 1988 && /kkjk 7 mica/k ds v/khu fl)nks"k Bgjk;k x;k lsok fuoZŸk lsod && lquokbZ dk volj iznku fd, fcuk && D;k isa'ku jksdh tk ldrh gS && uSlfxZd U;k; dk fla)kr && dk ykxw gksuk && fu;e 8¼2½ vfHkO;Dr :i ls vioftZr ugha djrk && fu;e 8¼3½ ds v/khu && uSlfxZd U;k; dk fla)kr && dk ykxw gksuk && fu;e 8¼2½ vfHkO;Dr :i ls vioftZr ugha djrk && fu;e 8¼3½ ds v/khu && uSlfxZd U;k; dk fl)kar vkKkid :i esa varfyf[kr gS && ,sls lsod dks lquokbZ dks volj iznku fd;k tkuk && visf{kr ugha && l{ke izkf/kdkjh dks ,sls fl)nks"k laca/kh fu.kZ; dks /;ku esa j[krs gq, fu.kZ; fy, tkus dh vko';drk gSA

       U;k- lqtks; ikWy&&

       vfHkfu/kkZfjr % esjh jk; esa fu;e 8 dk mifu;e ¼2½ uSlfxZd U;k; ds fl)kar dk ykxw gksuk vfHkO;Dr :i ls vioftZr ugha djrkA mifu;e ¼3½] tSlk fd mfYyf[kr gS] lquokbZ ds volj dk mica/k djrk gS tc l{ke izkf/kdkjh isa'kuj dk xaHkhj vopkj dk izFken`"V~;k nks"kh gksus dk fopkj djrk gSA mifu;e ¼3½ es] uSlfxZd U;k; dk fl)kar vkKkid :i ls vrafyf[kr gS] tcfd mifu;e ¼2½ esa ;g micaf/kr gS fd ,sls fl)nks"k ds laca/k esa U;k;ky; ds fu.kZ; dks /;ku esa j[krs gq, dk;Zokgh dh tk,xhA mifu;e ¼2½ esa ftl jhfr esa 'kCnksa dks O;Dr fd;k x;k gS] esjh lqfopkfjr jk; esa ;g uSlfxZd U;k; ds fl)kar dks foof{kr :Ik ls vioftZr djrk gSA

       esjh lqfopkfjr jk; es] u rks flfoy lsok ¼oxhZdj.k] fu;a=.k vkSj vihy½ fu;eksa ds fu;e 19 esa vkSj u gh fu;e 8 ds mifu;e ¼2½ esa] uSlfxZd U;k; dk fl)kar i<+k tk ldrk gSA okLro es] mlh dkj.k ls mi;qZDr nksuksa mica/kks esa foof{kr rkSj ij vioftZr gSA l{ke izkf/kdkjh ds fu.kZ; dk ,dek= vk/kkj nks"kh ds vkpj.k@vijk/k ls mRiUu fl)nks"k ds fu.kZ; ij fuHkZj djsxkA

       mi;qZDr fo'ys"k.k dh n`f"V ls] iz'u Øekad 1 ds laca/k esa esjh jk; gS fd fu;e 8 ds mifu;e ¼1½ ds v/khu fu.kZ; ysus ls iwoZ lsok fuo`Ÿk ljdkjh lsod dks lquokbZ dk volj iznku djuk visf{kr ugha gS vkSj l{ke izkf/kdkjh dks ,sls fl}nks"k ds laca/k esa U;k;ky; ds fu.kZ; dks /;ku esa j[krs gq, fUk.kZ; ysus dh vko';drk gSA tc fu;e ¼2½ uSlfxZd U;k; ds fl)akr dks foof{kr :i ls vioftZr djrk gS] ;g U;k;ky; vkKkid dkuwuh izkf/kdkj dh voKk dj uSLkfxZd U;k; ls lac/k j[kus ds mica/k ugha i<+ ldrkA ¼1970½ 2 ,l lh lh 458] ¼1978½ 1 ,l lh lh 248] ¼1994½ 5 ,l lh lh 267 rFkk ¼2010½ 13 ,l lh lh 255 vuqlfjrA ¼1976½ 3 ,l lh lh 190 fufnZ"VA ¼1985½ 3 ,l lh lh 398 foosfprA

       Ckgqer jk; &&

       cgqer jk; dh n`f"V esa] ;g vfHkfu/kkZfjr fd;k tkrk gS fd flfoy lsok isa'ku fu;e 1976 ds fu;e 8¼2½ ds v/khu jksdus dk vkns'k ikfjr djus ds iwoZ lquokbZ dk volj iznku fd;k tkuk visf{kr gS vkSj nkÅjke egs'oj fo- e-iz- jkT; rFkk ,d vU; dk fu.kZ; tSlk fd 2017 ¼1½ ,e ih ,y ts esa izdkf'kr lgh & gh fofuf'pr fd;k x;k gSa 2017 ¼1½ ,e ih ,y ts 640 vfHkiq"VA