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IN THE HIGH COURT OF MADHYA PRADESH
Sheel Nagu and Anand Pathak, JJ.
Radha Krishna Sharma v. State of M. P. & Others
Writ Appeal No. 875 of 2020 (Gwalior): against the order
dated 1.7.2020 passed in W.P. No. 8940/2020;
Decided on 3.8.2021
(1) Civil Services (Pension) Rules, 1976 (M.P.) -- R. 9 (1) -- basic ingredients -- enumerated. [Para 6]
(2) Civil Services (Pension) Rules, 1976 (M.P.) -- R. 9 (1) -- with drawing/with holding of pension after departmental enquiry -- opportunity of hearing -- if withdrawing/withholding of pension is based upon pensioner having been found guilty in judicial proceedings, then rule does not in express term provide for any further opportunity of being heard before Governor withdraws/with holds pension -- requirement of rules of natural justice is fulfilled during criminal trial. [Para 6.1]
(3) Civil Services (Pension) Rules, 1976 (M.P.) -- R.9 (1) -- petitioner tried and convicted for demanding and accepting bribe -- offence involves moral turpitude -- since petitioner -- pensioner was found guilty of grave misconduct in judicial proceedings (criminal trial), pre requisites for invoking power of Governor to withdraw/withhold pension are satisfied. [Para 7]
(4) Civil Services (Pension) Rules, 1976 (M.P.) -- R. 9 (1) -- Constitution of India -- Art. 21-- power of Governor to withdraw/withhold pension -- includes part or full withdrawal/withholding of pension, and on permanent or temporary basis -- pensioner found guilty of grave misconduct in judicial proceedings -- Governor has to apply her/his mind to relevant factors of gravity of offence, whether maximum or minimum punishment was imposed, expected hardships and extenuating circumstances which may lead to success inappeal against conviction -- then Governor has to decide whether to withdraw/withhold pension entirely or partly, and temporarily or permanently -- not to be done unilaterally -- opportunity of hearing should be afforded to delinquent pensioner -- such opportunity is not mere formality -- withdrawing/withholding pension partly or fully, and temporarily or permanently vitally affects right to livelihood, which is directly related to right to life. [Paras 7.1 to 7.4]
(5) Pension -- not bounty but right -- reward for services rendered to State -- reduction/withdrawing/withholding of pension, partly or fully, temporarily or permanently -- causes serious adverse civil consequences. [Paras 8 & 11]
(6) Natural Justice -- withdrawing or withholding pension -- decision to withdraw/withhold pension, partly or fully, permanently or temporarily, cannot be taken without hearing pensioner whois to be adversely affected. [Para 8.1]
(7) Civil Services (Pension) Rules, 1976 (M.P.) -- R.9 (1)-- withdrawing or withholding pension -- relevant factors for decision to withdraw/withhold pension, partly or fully, permanently or temporarily -- non-awarding of maximum prescribed sentence can be relevant factor to decide not to withdraw entire pension but only part of it, and for limited period. [Para 9]
(8) Civil Services (Pension) Rules, 1976 (M.P.) -- R. 9 (1) -- opportunity of hearing -- summary enquiry by Governor u/r. 9(1)shall become illusory if delinquent pensioner is not allowed to have her/his say -- petitioner-pensioner entitled to opportunity of being heard prior to issuance of impugned order withdrawing pension in toto. AIR 1973 SC 834 and 1989 Supp. (2) SCC565 followed. (2001) 6 SCC 584, (2010) 13SCC 255 and (2013) 3 SCC 594 distinguished. [Paras 9 & 12]
(9) Natural Justice -- decision causing civil consequences of adverse nature -- ought to be preceded by reasonable opportunity of hearing -- else,it renders itself abhorrent to basic fundamentalsof rule of law -- this principle applies even where statute does not in express terms provide for affording reasonable opportunity of hearing. [Paras 9.1 & 10]
¼1½ flfoy lsok ¼isU'ku½ fu;e] 1976 ¼eŒÁŒ½ & fuŒ9¼1½ & ewy vo;o & ifjxf.krA ¼iSjk 6½
¼2½ flfoy lsok ¼isU'ku½ fu;e] 1976 ¼eŒÁŒ½ & fuŒ9¼1½ & foHkkxh; tkap ds i'pkr~ isU'ku okil ysuk@jksduk & lquokbZ dk volj & ;fn isU'ku dk okil ysuk@jksduk U;kf;d dk;Zokgh esa isU'kuHkksxh ds nks"kh ik, tkus ij vkèkkfjr gS rks jkT;iky }kjk isU'ku okil fyl tkus@jksds tkus ds iwoZ iqu% lqus tkus@jksds tkus ds iwoZ iqu% lqus tkus dk volj fu;e esa lqO;Dr 'kCnksa esa micafèkr ugha & uSlfxZd U;k; ds fu;e dh vis{kk nkafMd fopkj.k ds nkSjku iw.kZ gks tkrh gSA ¼iSjk 6-1½
¼3½ flfoy lsok ¼isU'ku½ fu;e] 1976 ¼eŒÁŒ½ & fuŒ9¼1½ & fj'or ekaxus vkSj Lohdkj djus ds fy, ;kph dk fopkj.k gqvk fl)nks"k Bgjk;k x;k & vijkèk esa uSfrd v/kerk varoZfyr & U;kf;d dk;Zokgh ¼nkafMd fopkj.k½ esa ;kph&isU'kuHkksxh xaHkhj vopkj dk nks"kh ik;k x;k blfy, isU'ku okil ysus@jksdus ds fy, jkT;iky dh 'kfDr dk vkJ; ysus dh iwokZis{kkvksa dh iwfrZ gks xbZA ¼iSjk 7½
¼4½ flfoy lsok ¼isU'ku½ fu;e] 1976 ¼eŒÁŒ½ & fuŒ9¼1½ & Hkkjr dk lafo/kku & vuqPNsn 21 & isU'ku okil ysus@jksdus dh jkT;iky dh 'kfDr & vkaf'kd ;k iw.kZ isU'ku] LFkk;h ;k vLFkk;h vk/kkj ij] okl ysuk@jksduk lfEefyr & U;kf;d dk;Zokgh esa isU'kuHkksxh xaHkhj vopkj dk nks"kh ik;k x;k & jkT;iky dks vijk/k dh xaHkhjrk] vf/kdre naM vf/kjksfir fd;k x;k ;k ugha] ÁR;kf'kr dfBukb;ksa rFkk ,slh ifj'keudkjh ifjfLFkfr;ka tks nks"kflf) ds fo#) vihy esa lQyrk fnyk ldrh gksa] ds lqlaxr dkjdksa ij euksfu;ksx djuk gksrk gS & fQj jkT;iky dks isU'ku iw.kZr% ;k va'kr% rFkk vLFkk;h ;k LFkk;h :i ls okil ysus@jksdus dk fofu'p; djuk gksrk gS & ,slk ,di{kh; :i ls ugha fd;k tkuk gksrk & vipkjh isU'kuHkksxh dks lquokbZ dk volj fn;k tkuk pkfg, & ,slk volj vkSipkfjdrk ek= ugha & isU'ku iw.kZr% ;k va'kr% rFkk vLFkk;h ;k LFkk;h :i ls okil ysus@jksdus ls thfodk dk vf/kdkj vko';dr% ÁHkkfor gksrk gS] ftldk ÁR;{k laca/k thou ds vf/kdkj ls gSA ¼iSjk 7-1 ls 7-4½
¼5½ isU'ku & vf/knku ugha] vfirq vf/kdkj & jkT; dks nh xbZ lsok dk iqjLdkj & isU'ku va'kr% ;k iw.kZr% vLFkk;h ;k LFkk;h :i ls] ?kVkuk@okil ysuk@jksduk & xaHkhj Áfrdwy flfoy ifj.kke dkfjr gksrs gSaA ¼iSjk 8 ,oa 11½
¼6½ uSlfxZd U;k; & isU'ku okil ysuk ;k jksduk & isU'ku iw.kZr% ;k va'kr% LFkk;h ;k vLFkk;h :i ls] okil ysus@jksdus dk fofu'p; isU'kuHkksxh dks] ftl ij Áfrdwy ÁHkko iM+uk gS] lqus fcuk ugha fd;k tk ldrkA ¼iSjk 8-1½
¼7½ flfoy lsok ¼isU'ku½ fu;e] 1976 ¼eŒÁŒ½ & fuŒ9¼1½ & isU'ku okil ysuk ;k jksduk & isU'ku iw.kZr% ;k va'kr% LFkk;h ;k vLFkk;h :i ls] okil ysus@jksdus ds fofu'p; ds fy, lqlaxr dkjd & vf/kdre fofgr naM ugha fn;k tkuk] laiw.kZ isU'ku ugha] vfirq mldk va'k ek= rFkk lhfer vof/k ds fy,] okil ysus dk fofu'p; djus ds fy, lqlaxr dkjd gks ldrk gSA ¼iSjk 9½
¼8½ flfoy lsok ¼isU'ku½ fu;e] 1976 ¼eŒÁŒ½ & fuŒ9¼1½ lquokbZ dk volj & vipkj isU'kuHkksxh dks viuk i{k j[kus ugha fn;k tkrk rks jkT;iky }kjk fuŒ9¼1½ ds v/khu laf{kIr tkap Nykok ek= jg tk,xh & isU'ku laiw.kZr% okil ysus dk vkf{kIr vkns'k tkjh fd, tkus ds iwoZ ;kph&isU'kuHkksxh lqus tkus ds volj dk gdnkjA , vkb vkj 1973 ,l lh 834 rFkk 1989 lIyhŒ ¼2½ ,l lh lh 565 vuqlfjrA ¼2001½ 6 ,l lh lh 584] ¼2010½ 13 ,l lh lh 255 rFkk ¼2013½ 3 ,l lh lh 594 ÁHksfnrA ¼iSjk 9 ,oa 12½
¼9½ uSlfxZd U;k; & fofu'p; ls Áfrdwy ÁÑfr ds flfoy ifj.kke dkfjr & mlls iw.kZ lquokbZ dk ;qfDr;qDr volj gksuk pkfg, & vU;Fkk] og fofèk lEer 'kklu ds vko';d ewy rRoksa dk fojks/kh gks tkrk gS & ;g fl)kar ogka Hkh ykxw gksrk gS tgka dkuwu esa lquokbZ dk ;qfDr;qDr volj fn;k tkuk lqO;Dr 'kCnksa esa mcaf/kr ughaA ¼iSjk 7½
ORDER
Nagu, J.-- 1. This intra Court Appeal u/S. 2 (1) of Madhya Pradesh Uchcha Nyayalaya (Khand Nyayapeeth Ko Appeal) Adhiniyam, 2005, assails the final order dated 1.7.2020 in W.P.8940/2020 passed by learned Single Judge while exercising writ jurisdiction u/Art.226 of the Constitution dismissing the petition in question by which challenge was made to the order dated 19.3.2020 issued u/rule 9(1) of M.P. Civil Services (Pension) Rules, 1976 (“Pension Rules” for brevity) vide P-1 withdrawing 100% pension of petitioner who had retired from the post of Revenue Inspector on attaining the age of superannuation on 31.5.2016.
1.1 The challenge to the order of withdrawing of pension was primarily based on the ground of violation of principle of natural justice (audi alterm partem).
2. Learned Single Judge held that in absence of any prejudice established by petitioner, the non-issuance of show-cause notice prior to withdrawal of pension cannot per se assist the petitioner in the absence of establishing prejudice, for which reliance was placed on Natwar Singh v. Director of Enforcement [(2010) 13 SCC 255] & State v. N.S. Gnaneswarab [(2013) 3 SCC 594].
2.1 Learned Single Judge has also relied upon the apex Court decision in the case of K.C. Sareen v. CBI [(2001) 6 SCC 584] wherein the tendency of the superior Courts to suspend conviction in cases involving moral turpitude was criticized.
3. Before embarking upon adjudication, it would be apt to delineate the basic facts which are as follow:
| Dates | Events |
| 2014 | Registration of offence u/S.7 r/w 31(1)(d) and 13(2) of Prevention of Corruption Act against the petitioner who was holding the post of Revenue Inspector. |
| 31.5.2016 | Petitioner superannuates from the post of Revenue Inspector. |
| 1.6.2016 | Charge-sheet filed by prosecution in the Court of competent criminal jurisdiction u/S.7 r/w 31(1)(d) and 13(2) of Prevention of Corruption Act. |
| 30.6.2019 | Petitioner is convicted u/S.7 to suffer four years’ RI and u/Ss.31(1)(d) and 13(2) to suffer five years’ RI respectively under Prevention of Corruption Act along with fine. |
| 21.11.2019 | High Court in Criminal Appeal 3254/2019 suspends the sentence and grants bail to the petitioner during pendency of this criminal appeal which continues to be pending till date. |
| 19.3.2020 | Impugned order withdrawing entire pension u/R.9 M.P Civil Services Pension Rules, 1976 is passed. |
| June, 2020 | W.P. No. 8940/2020 is filed by the petitioner assailing the order dated 19.3.2020. |
| 1.7.2020 | The Writ Court dismisses W.P. No. 8940/2020 on merits. |
| 2.9.2020 | Present Writ Appeal filed. |
4. Before analyzing contentions of rival parties, it would be apt to reproduce relevant provision of Rule 9 of M.P Civil Services Pension Rules, 1976 :
“9. Right of Governor to withhold or withdraw pension. -
(1) The Governor reserves to himself the right of withholding or withdrawing a pension or part thereof, whether permanently or for a specified period, and of ordering recovery from pension of the whole or part of any pecuniary loss caused to the Government if, in any departmental or judicial proceeding, the pensioner is found guilty of grave misconduct or negligence during the period of his service, including service rendered upon re-employment after retirement:
Provided that the State Public Service Commission shall be consulted before any final orders are passed :
Provided further that where a part of pension is withheld or withdrawn, the amount of such pension shall not be reduced below [the minimum pension as determined by the Government from time to time];
(2) (a) The departmental proceedings [xxx], if instituted while the Government servant was in service whether before his retirement or during his re-employment, shall, after the final retirement of the Government servant, be deemed
Under Rule 8(2) of the Pension Rules, 1976, no notice or opportunity of hearing is required to withhold pension after a conviction, and the principles of natural justice are specifically excluded in ....
Withdrawal of pension for convicted public servants under Rule 8 of the Pension Rules is permissible without a hearing when the conviction involves a serious crime like bribery.
A show cause notice is required to be given to a retired Government Servant convicted by a criminal court prior to taking a decision regarding his entitlement to pension.
Withdrawal of pension under the Prevention of Corruption Act post-conviction is permissible without a prior hearing; automatic stoppage of 100% pension for serious crimes is justified under law.
The principles of natural justice are excluded and have no application to cases falling under Rule 8(2) of the M.P. Civil Services (Pension) Rules 1976, and no notice or prior opportunity of represen....
The main legal point established is that the principle of natural justice must be observed even if there is no specific reference in the rule, especially if the consequence of the decision is going t....
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