Madhya Pradesh High Court
Varun Mangal vs The State Of Madhya Pradesh on 4 March, 2025
Author: Gurpal Singh Ahluwalia
Bench: G. S. Ahluwalia
NEUTRAL CITATION NO. 2025:MPHC-GWL:5613
1 WP. No. 10583 of 2020
IN THE HIGH COURT OF MADHYA PRADESH
AT G WA L I O R
BEFORE
HON'BLE SHRI JUSTICE G. S. AHLUWALIA
ON THE 4th OF MARCH, 2025
WRIT PETITION No. 10583 of 2020
VARUN MANGAL
Versus
THE STATE OF MADHYA PRADESH AND OTHERS
Appearance:
Shri Sunil Kumar Jain - Advocate for petitioner.
Shri Ravindra Dixit - Government Advocate for State.
Shri Sankalp Sharma- Advocate for respondent No.2.
ORDER
This petition under Article 226 of the Constitution of India has been filed
seeking the following reliefs:-
"7.1 It is, therefore, prayed that Writ petition may kindly be
allowed.
7.2 Order dated 20-07-2020 vide annexure P-1 issued by
Respondent No.2 for dismissal from service, contrary to service
rules and being without conduction of departmental inquiry may
kindly be quashed.
7.3 All consequential benefits and cost of petition may kindly be
allowed."
2. Since controversy revolves in a very narrow compass, therefore, it is not
necessary to discuss the facts of the case in detail. It is suffice to mention that a
NEUTRAL CITATION NO. 2025:MPHC-GWL:5613
show-cause notice dated 12.12.2019 was issued to petitioner, alleging that a
memorandum was received with regard to non-payment of a certain amount even
after five months and, accordingly, an enquiry with regard to payment of Asha
Protsahan Rashi and other projects of Asha was conducted. It was found that
Asha Protsahan Rashi is not being paid in accordance with the directions issued
by the State Health Committee, and in certain cases, payments were made on
multiple occasions in a month and it was found that to certain Asha workers,
excessive payments were made. It was also found that there is a difference
between the details uploaded on the Asha portal and the actual payment made by
the petitioner. It was also mentioned that approximately to 6 Asha workers,
encouragement amount was paid thrice in the month of July, 2018 and 3-4 times
in the month of September, 2018. Accordingly, petitioner was called upon to
explain as to why his services should not be terminated.
3. Petitioner submitted his reply denying the aforesaid allegations.
4. It is submitted by counsel for petitioner that by order dated 20.07.2020, a
detailed order was passed by giving a finding on six different issues, and
ultimately, contractual service of the petitioner was terminated.
Challenging the order passed by the Mission Director, National Health
Mission, State of Madhya Pradesh, it is submitted by counsel for petitioner that
show-cause notice which was given was not an elaborate one, and no specific
instances were mentioned pointing out the details that when excessive payments
were made to different Asha workers. It is submitted that since the show-cause
notice was not elaborate, therefore, valuable right of petitioner to defend himself
got frustrated, thereby causing serious prejudice to him.
5. Per contra, petition is vehemently opposed by counsel for the respondents.
It is submitted that allegations in a concise form were mentioned in the show-
cause notice, and therefore, sufficient opportunity of hearing was given to
NEUTRAL CITATION NO. 2025:MPHC-GWL:5613
petitioner. Petitioner was working as a contractual employee, and one of the
conditions of the contract was that his services can be terminated after giving full
opportunity of hearing.
6. The moot question for consideration is as to whether show-cause notice
dated 12.12.2019 was an elaborate one or not, and even if it was in a concise
form, then whether it contained all the necessary allegations thereby giving
reasonable opportunity of hearing to petitioner to defend himself?
7. The show-cause notice dated 12.12.2019 reads as under:
dz-@,u-,p-,e-@vk'kk@2019@15059 Hkksiky] fnukad 12-12-2019
izfr]
Jh o:.k eaxy]
fodkl[kaM ys[kk izca/kd]
fodkl[kaM djsjk]
ftyk f'koiqjh] eizA
fo"k;& fodkl[kaM cnjokl esa vk'kk izksRlkgu jkf'k ds Hkqxrku esa vfu;ferrk fd;s
tkus ds laca/k esaA
mijksDr fo"k;karxZr ys[k gS fd jkT; Lrjh; tkap ny us vk'kk&m"kk&vk'kk
lg;ksfxuh ,drk ;wfu;u e/;izns'k }kjk **ifr dh e`R;q dks ns[krs gq;s vk'kk dk ikap
ekg dk cdk;k izksRlkgu jkf'k dk Hkqxrku fd;s tkus gsrq** fn;s Kkiu ij tkap ny us
vk'kk izksRlkgu jkf'k ds Hkqxrku ,oa vk'kk dk;Zdze ds vU; dk;ksZa dh tkap dhA blesa
ik;k x;k fd vk'kk izksRlkgu jkf'k Hkqxrku esa jkT; LokLF; lfefr ds fn'kk funsZ'kksa ds
vuqlkj ugha fd;s x;s gSaA ,d ekg esa gh dbZ dbZ ckj vk'kkvksa dks Hkqxrku fd; x;s]
dqN vk'kkvksa dks vR;f/kd Hkqxrku fd;k x;k rFkk vk'kk iksVZy ,oa vkids }kjk cuk;s
x;s Hkqxrku esa varj ik;k x;k gSA yxHkx 6 vk'kkvksa dks vkids }kjk tqykbZ 2018 esa
rhu ckj rFkk flracj 2018 esa 3&4 ckj Hkqxrku pkj izdkj dh izksRlkgu jkf'k dk
fd;k x;k gSA
vr% D;ksa u jkT; LokLF; lfefr ds fn'kk funZs'kksa dk mYya?ku djus rFkk
foRrh; vfu;ferrk djus tSlh xaHkhj d`R;ksa dks ns[krs gq;s vkidh lsok lekfIr dj nh
tk;sA lkr fnol ds vanj viuk Li"Vhdj.k izLrqr djsaA Li"Vhdj.k larks"ktud u
ik;s tkus ij vkidh lsok,a lekIr dj nh tkosaxhA
lgh@&
¼Nfo Hkkj}kt½
fe'ku lapkyd
jk"Vz~h; LokLF; fe'ku
e/;izns'k
NEUTRAL CITATION NO. 2025:MPHC-GWL:5613
8. The impugned order dated 20.07.2020 reads as under:
dz-@,u-,p-,e-@vk'kk@2020@9517 Hkksiky] fnukad 20-07-2020
@@vkns'k@@
jk"Vzh; LokLF; fe'ku ds i= i= dz-@,u-,p-,e@vk'kk@2019@15059] Hkksiky
fnukad 12-12-2019 }kjk fodkl[kaM cnjokl] ftyk f'koiqjh esa vk'kk izksRlkgu jkf'k ds
Hkqxrku esa vfu;ferrk fd;s tkus ds laca/k esa Jh o:.k eaxy ¼rRdkyhu fodkl[kaM
ys[kk izca/kd cnjokl orZeku inLFkkiuk djsjk] f'koiqjh½ dks dkj.k crkvks lwpuk i=
tkjh fd;k x;k Fkk ftlds laca/k esa muds }kjk i= fnukad 26-12-2019 ¼ ,u-,p-,e
vkod dzekad 1308@20-01-2020 ½ ls mRrj izLrqr fd;k x;k Jh eaxy }kjk iszf"kr
mRrj dk fcUnqokj fo'ys"k.k fuEukuqlkj gSA
fcUnq dzekad 01%& jkT; LokLF; lfefr Hkksiky }kjk vk'kk izksRlkgu jkf'k Hkqxrku
ds laca/k esa le; le; ij fn'kkfunsZ'k tkjh fd;s x;s fdarq mDr fn'kkfunsZ'kksa dk
ikyu fodkl[kaM dE;qfuVh eksfcykbZtj ¼ ch-lh-,e-½ }kjk ugha fd;k x;k gSA
fo'ys"k.k%& jkT; LokLF; lfefr Hkksiky }kjk vk'kk izksRlkgu jkf'k Hkqxrku ds laca/k
esa le; le; ij tkjh fn'kkfunsZ'k lEiw.kZ Cykd dk;Zdze izca/kd bdkbZ ij ykxw gksrs
gSa ,oa blds fy, ;g dFku fd fn'kkfunsZ'kksa dk ikyu fodkl[kaM dE;qfuVh
eksfcykbZtj ¼ ch-lh-,e-½ }kjk ugha fd;k x;k rdZ laxr izrhr ugh gksrk gSA vk'kk
izksRlkgu jkf'k Hkqxrku esa Cykd ys[kk izca/kd ,d egRoiw.kZ dM+h gS ,oa leLr izdkj
ds foRrh; fu;eksa dk vuqikyu lqfuf'pr fd;k tkuk] fdlh Hkh Hkqxrku gsrq okmpj]
lg;ksxh nLrkost (supporting documents) izkIr fd;k tkuk rFkk ;g Hkqxrku
lqlaxr xfrfof/k varxZr fu;ekuqlkj fd;k x;k gS vFkok ugha bu lHkh rF;ksa dh iqf"V
fd;k tkuk ,oa blds mijkar gh lacf/kr Hkqxrku fd;k tkuk Cykd ys[kk izca/kd ds
ewy dk;Znkf;Roksa esa lfUufgr gSA dfri; vk'kk dk;ZdrkZvksa dks vkSlr ls dkQh vf/kd
Hkqxrku fd;k tkuk ;g n'kkZrk gS fd ch-lh-,e }kjk vius drZO;ksa dk ikyu ugh
fd;k x;k gSA
fcUnq dzekad 02%& ch-lh-,e- cnjokl }kjk vk'k iksVZy ij Hkqxrku dh
vf/kdka'k izfof"V ugha dh x;hA chlh,e }kjk [kaMfpfdRlk vf/kdkjh cnjokl
dks uksV'khV o vk'kk Hkqxrku dh gkMZ dkWih izLrqr dh tkrh Fkh] [kaMfpfdRlk
vf/kdkjh cnjokl ds Hkqxrku funsZ'k ds ckn uksV'khV o vk'kk Hkqxrku dh
gkMZ dkWih o lkWQ~V dkWih e; Hkqxrku vkns'k ds izkFkhZ ds ikl vkrh Fkh
ftldk Hkqxrku dj fn;k tkrk FkkA
fo'ys"k.k%& foRrh; o"kZ 2018&19 ls Cykd Lrj ij leLr Hkqxrku ¼ftuesa vk'kk
izksRlkgu jkf'k Hkqxrku Hkh lfEefyr gS½ bZ&foRrizokg lkQ~Vos;j ds ek/;e ls fd;s
tk;saxs ds funsZ'k fn;s x;s ftlesa vk'kk lkQ~Vos;j esa Hkqxrku laca/kh iwfrZ;ka fd;s tkus
ds ckn ,d ih-,Q-,e-,l- 'khV tujsV gksrh gS ,oa bl 'khV dks bZ&foRrizokg esa
viyksM fd;k tkrk gSA rRi'pkr laca/kh vkgj.k forj.k vf/kdkjh ds Fkac baizs'ku }kjk
Hkqxrku lEHko gksrk gSA mDr izfdz;k ds vHkok esa ch-,-,e- }kjk gkMZ dkWih ds vk/kkj
ij Hkqxrku dj fn;k tkuk lansg vkSj vkilh feyhHkxr dks mtkxj djrk gS] ,oa
buds }kjk izLrqr mRrj fo'okl ;ksX; ugha gSA
fcUnq dzekad 03%& chlh,e ds vfu;fer vk'kk Hkqxrku ds laca/k esa dbZ ckj esjs }kjk
rkRdkyhu ch-,e-vks- cnjokl] rkRdkyhu lh-,e-,p-vks- f'koiqjh] Mh-ih-,e-@Mh-,-,e-
@Mh-lh-,e- ftyk f'koiqjh dks voxr djk;k x;k fdarq fdlh Hkh izdkj dh dk;Zokgh
NEUTRAL CITATION NO. 2025:MPHC-GWL:5613
ugh gq;hA
fo'ys"k.k%& vfu;fer vk'kk izksRlkgu jkf'k Hkqxrku ds laca/k esa Cykd ys[kk
izca/kd }kjk ofj"B vf/kdkfj;ksa dks voxr djkus laca/kh dFku fd;k gS ijUrq blds
laca/k esa dksbZ@i=@nLrkost miyC/k ugha djk;s x;s gSa vr% dFku larks"ktud ,oa
fo'okl ;ksX; ugha gSA
fcUnq dzekad 04%& cnjokl essa vk'kk dk;ZdrkZvksa ds ,d cMs lewg }kjk 'kkldh;
fu;eksa@funsZ'kksa dh vogsyuk vf/kdkjh@deZpkfj;ksa ij ncko Mkyus dk dk;Z fd;k
tkrk gS fdarq mDr mn~naM vk'kk dk;ZdrkZvksa ij fdlh Hkh izdkj dh dk;Zokgh u gksus
ls vjktdrk dk ekgkSy O;kIr gSA mDr fLFkfr dks Hkksiky ls vk;s tkap ny }kjk
izR;{k esa ns[kkA
fo'ys"k.k%& Cykd ys[kk izca/kd Jh o:.k eaxy }kjk izLrqr rdZ vk/kkjghu o
vfo'oluh; gS fdlh Hkh 'kkldh; lsod dks fdlh ncko@vjktdrk ls foo'k gksdj
'kkldh; /kujkf'k ls vfu;fer Hkqxrku fd;s tkus laca/kh dFku rdZlaxr ugh gSA
jkT; Lrjh; tkap ny }kjk vius izfrosnu esa ,slh fdlh ckr dk fooj.k ugh gSA
fcUnq dzekad 05%& ch-,-,e- ds leLr dk;Z fu;eksa ds nk;js esa jgdj esjs }kjk
laikfnr fd;s x;s gSaA Hkksiky ls vk;s tkap ny }kjk izR;{k esa fjdkMZ dk Hkh voyksdu
fd;k gSA vk'kk Hkqxrku tks eq>s fn;k x;k esjs }kjk fd;k x;k gSA esjs }kjk fdlh Hkh
izdkj dh foRrh; vfu;ferrk ugh dh x;h gSA d`I;k esjk Li"Vhdj.k Lohdkj djus
dk d"V djsaA
fo'ys"k.k%& fcUnq dzekad 01 ls 04 rd fofHkUu rF;ksa ds fo'ys"k.k ls Li"V gksrk gS fd
Cykd cnjokl] ftyk f'koiqjh esa vk'kk izksRlkgu jkf'k Hkqxrku fu;ekuqlkj ugha fd;k
x;k gSA jkT; Lrjh; tkap ny ds izfrosnu o vk'kkvksa dks fd;s x;s Hkqxrku ls
lacaf/kr izi= ls ;g Li"V gksrk gS fd yxHkx 12 vk'kkvksa dks foRrh; o"kZ 2018&19
ds nkSjku vR;kf/kd jkf'k dk Hkqxrku fd;k x;k] ,d ekg esa dbZ&dbZ ckj vk'kkvksa
dks Hkqxrku fd;k x;k] vk'kk iksVZy ,oa ch-,-,e- }kjk cuk;s x;s Hkqxrku esa varj ik;k
x;k] yxHkx 06 vk'kkvksa dks ch-,-,e- }kjk tqykbZ 2018 esa rhu ckj rFkk flracj
2018 esa 03 ls 04 ckj Hkqxrku fd;k x;kAJh o:.k eaxy] rRdkyhu Cykd ys[kk
izca/kd] cnjokl orZeku inLFkkiuk ftyk f'koiqjh dh dk;Ziz.kkyh ds laca/k esa jkT;
Lrjh; tkap ny }kjk vius izfrosnu esa fuEukuqlkj rF;k izLrqr fd;s gSaA
• chlh,e] cnjokl lqJh iq"ik dq'kokgk us vius dFku esa ys[k fd;k gS fd o"kZ
2018 esa Hkqxrku izfdz;k lh/ks rRdkyhu ch-,-,e- o:.k eaxy] }kjk rRdkyhu ch-,e-vks-
MkW fiIiy rFkk izHkkjh chih,e v'kksd ifjgkj }kjk fd;s tkrs FksA rRdkyhu ch,evks
MkW-vkj-,y- fiIiy Lo;a vk'kkvksa dks vius ikl cqykrs Fks ,oa mudk [kkrk uacj ysrs Fks
,oa ch,,e o:.k eaxy ds }kjk Hkqxrku fd;k tkrk FkkA bldh tkudkjh chlh,e dks
Hkh ugha nh tkrh FkhA cnjokl ls djsjk LFkkukaarj.k ds i'pkr~ ch,,e }kjk viuh gSaM
jk;fVax esa chlh,e dh rjQ ls i= fy[kk x;k rFkk mlesa lqJh iq"ik dq'kokgk ds
gLrk{kj djk;s x;sA lkFk gh leLr nLrkost mUgksus vius ikl j[ks mldh dkWih Hkh
ugha nh x;hA
• DAM, BAM dh Hkqxrku ds ekeys esa euekuh pyrh gSA vk'kk iksVZy ls
cus 'khV ds vuqlkj iwjk Hkqxrku ugh fd;k tkrk gSA
Jh o:.k eaxy }kjk fd;s x;s mijksDr lHkh d`R; xaHkhj vfu;ferrk dh Js.kh esa vkrs
gSa vr% ch-,e-,- dk ;g dFku dh muds }kjk leLr dk;Z fu;eksa ds nk;js esa jgdj
fd;s x;s lR;rk ds ijs gSaA
Jh o:.k eaxy ¼rRdkyhu fodkl[kaM ys[kk izca/kd cjnokl] orZeku inLFkkiuk djsjk]
NEUTRAL CITATION NO. 2025:MPHC-GWL:5613
f'koiqjh½ }kjk vius drZO;ksa dk fuoZgu ugh fd;k x;k ,oa buds }kjk jkT; LokLF;
lfefr ds fn'kk funsZ'kksa dh vogsyuk dh xbZA fodkl[k.M Lrjh; ys[kk izca/kd dk
nkf;Ro gksus ds dkj.k buds }kjk dh xbZ foRrh; vfu;ferrkvksa ls 'kkldh; /kujkf'k
dk viO;; gqvk gS ,oa LokLF; foHkkx rFkk jk"Vzh; LokLF; fe'ku dh Nfo ij foifjr
izHkko iM+k gS budk ;g d`R; lafonk lsok fu;ekoyh ds foijhr gksdj bUgsa n.M dk
Hkkxh cukrk gS vr% Jh o:.k eaxy ¼rRdkyhu fodkl[kaM ys[kk izca/kd cjnokl]
orZeku inLFkkiuk djsjk] f'koiqjh½ dh lafonk lsok rRdky izHkko ls lekIr dh tkrh
gSA
lgh@&
¼Nfo Hkkj}kt½
fe'ku lapkyd
jk"Vz~h; LokLF; fe'ku
e/;izns'k
Hkksiky fnukad 20-07-2020
9. If the impugned order dated 20.07.2020 is considered, then it is clear that
the same was passed by formulating six issues, but those six issues were not
elaborately mentioned in the show-cause notice. Until and unless the person to
whom show-cause notice is issued is made to know about precise allegations
which have been leveled against him warranting explanation from him, it cannot
be said that no prejudice was caused to delinquent officer on account of the vague
show-cause notice.
10. The Supreme Court, in the case of Gorkha Security Services v. Govt.
(NCT of Delhi) reported in (2014) 9 SCC 105 , has held as under:-
"21. The central issue, however, pertains to the requirement of
stating the action which is proposed to be taken. The fundamental
purpose behind the serving of show-cause notice is to make the
noticee understand the precise case set up against him which he has
to meet. This would require the statement of imputations detailing
out the alleged breaches and defaults he has committed, so that he
gets an opportunity to rebut the same. Another requirement,
according to us, is the nature of action which is proposed to be taken
for such a breach. That should also be stated so that the noticee is
able to point out that proposed action is not warranted in the given
case, even if the defaults/breaches complained of are not
satisfactorily explained. When it comes to blacklisting, this
requirement becomes all the more imperative, having regard to the
NEUTRAL CITATION NO. 2025:MPHC-GWL:5613
fact that it is harshest possible action.
22. The High Court has simply stated that the purpose of show-cause
notice is primarily to enable the noticee to meet the grounds on
which the action is proposed against him. No doubt, the High Court
is justified to this extent. However, it is equally important to mention
as to what would be the consequence if the noticee does not
satisfactorily meet the grounds on which an action is proposed. To
put it otherwise, we are of the opinion that in order to fulfil the
requirements of principles of natural justice, a show-cause notice
should meet the following two requirements viz:
(i) The material/grounds to be stated which according to the
department necessitates an action;
(ii) Particular penalty/action which is proposed to be taken. It is this
second requirement which the High Court has failed to omit.
We may hasten to add that even if it is not specifically mentioned in
the show-cause notice but it can clearly and safely be discerned from
the reading thereof, that would be sufficient to meet this
requirement."
11. After considering the show-cause notice dated 12.12.2019 in the light of
judgment passed by the Supreme Court in the case of Gorkha Security Services
(Supra), this Court is of considered opinion that general allegation was leveled,
pointing out that to various Asha workers multiple payments were made in a
month. Neither names of those Asha workers were mentioned, nor the dates on
which multiple payments were made was mentioned. It was simply mentioned in
the show-cause notice that as per enquiry report, payment was not made in
accordance with the directions given by the State Health Level Committee. In
what manner the directions were violated was also not mentioned.
Similarly, if order dated 20.07.2020 is considered, then it is clear that the same is
vague. There are certain issues which were never part of the show-cause notice.
Furthermore, from the impugned order dated 20.07.2020, it appears that Mission
Director, instead of discussing the allegations made against the petitioner, merely
discussed the reply given by petitioner and held that the said reply is not
NEUTRAL CITATION NO. 2025:MPHC-GWL:5613
satisfactory. However, he has not considered the evidence which was against the
petitioner to establish his misconduct or negligence. Even in the final impugned
order, the names of those Asha workers to whom payments were made on
multiple occasions were not disclosed.
12. Under these circumstances, this Court is of considered opinion that in
absence of a specific show cause notice, serious prejudice was caused to
petitioner.
13. Furthermore, this Court, by order dated 14.03.2023, had directed
respondents to produce the record containing material related to excess payment
to 12 Asha workers, but even the said record was not produced.
14. Accordingly, order dated 20-07-2020 (Annexure P/1) is hereby quashed.
Whether this Court should remand the matter back to the concerned
Authority to conduct a detailed enquiry after giving a detailed show-cause
notice or should direct for reinstatement?
15. Undisputedly, petitioner was working as Block Account Manager on
contractual basis. The order of appointment of petitioner has not been placed on
record. Thus, it is also not known that what was the period of contractual service.
Petitioner has filed copy of order dated 02/06/2020 along with his rejoinder to
show that the period of contractual service was extended up to 31/03/2021.
Since the period of contractual service of petitioner was only upto
31/03/2021 but the impugned order was passed on 20/07/2020, it is clear that
even if matter is remanded back to the Authority to decide the allegation afresh,
still petitioner would not be liable to be re-instated, as a contractual employee has
no indefeasible right to continue. Therefore, no useful purpose would be served
by remanding the matter to the Authority to conduct the enquiry afresh. Similarly,
as term of contractual service of petitioner has already come to an end, therefore,
even after quashing the order dated 20/07/2020, this Court cannot direct for
NEUTRAL CITATION NO. 2025:MPHC-GWL:5613
reinstatement of petitioner.
Accordingly, after quashing the order dated 20/07/2020, it is directed that
the allegations made against petitioner shall not come in his way in case of his
recruitment in public office in future. However, no order with regard to his
reinstatement can be granted and, therefore, it is refused.
16. Petition is disposed of with aforesaid observations.
(G.S. Ahluwalia)
Judge
(and)
