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The State Of Tripura vs Sri Bikash Bhowmik
2025 Latest Caselaw 607 Tri

Citation : 2025 Latest Caselaw 607 Tri
Judgement Date : 4 March, 2025

Tripura High Court

The State Of Tripura vs Sri Bikash Bhowmik on 4 March, 2025

                                  Page 1 of 24




                        HIGH COURT OF TRIPURA
                              AGARTALA

                             WA No.115 of 2023
1.    The State of Tripura, represented by the Commissioner & Secretary, Rural
      Development Department, Government of Tripura, having his office at
      Secretariat Building, PO-Kunjaban, PS-New Capital Complex, Sub-
      Division-Agartala, District-West Tripura.

2.    The Commissioner & Secretary, Rural Development Department,
      Government of Tripura, having its office at Secretariat Building, PO-
      Kunjaban, PS-New Capital Complex, Sub-Division-Agartala, District-
      West Tripura, Pin-799006.

3.    The Secretary, Rural Development Department, Government of Tripura,
      having his office at Secretariat Building, PO-Kunjaban, PS-New Capital
      Complex, Sub-Division-Agartala, District-West Tripura, Pin-799006.
                                                             ....... Appellant(s)
                             VERSUS

1.     Sri Bikash Bhowmik, son of Sri Bijoy Krishna Bhowmik, resident of
       village - Opposite road of Ramthakur Ashram, Banamalipur, P.O-
       Agartala, PS-East Agartala, Sub-Divison-Agarala, District-West Tripura,
       Pin-799001.

                                                              ...... Respondent(s)

2. The Tripura Public Service Commission, represented by its Secretary, having its office at TPSC Bhawan, PO-Agartala, PS-West Agartala, Agartala, District-West Tripura, PIN-799001.

3. The Secretary, Tripura Public Service Commission, having his office at TPSC Bhawan, PO-Agartala, PS-West Agartala, Agartala, District-West Tripura, Pin-799001.

...... Proforma Respondent(s) For Appellant(s) : Mr. S. M. Chakraborty, Advocate General, Mr. Kohinoor N. Bhattacharyya, G.A., Mr. Dipankar Sarma, Addl. G.A. For Respondent(s) : Mr. Somik Deb, Sr. Advocate, Mr. Abir Baran, Advocate.

HON'BLE THE CHIEF JUSTICE MR. APARESH KUMAR SINGH HON'BLE MR. JUSTICE S. D. PURKAYASTHA

Date of hearing and judgment : 4th March, 2025.

Whether fit for reporting: Yes

Heard Mr. S. M. Chakraborty, learned Advocate General

assisted by Mr. Kohinoor N. Bhattacharyya, learned Government Advocate

and Mr. Dipankar Sarma, learned Additional Government Advocate for the

appellants-State. Also heard Mr. Somik Deb, learned senior counsel assisted

by Mr. Abir Baran, learned counsel for the writ petitioner/respondents.

2. The learned writ Court set aside the order of dismissal form

service dated 27.12.2022 (Annexure-15) and directed reinstatement of the

writ petitioner with all consequential benefits. However, it also observed that

considering the prima facie allegations of disproportionate assets against the

writ petitioner, respondents were directed not to post him at his original place

of posting but elsewhere in the same rank. Being aggrieved, the appellant-

State is before us. In order to deal with the challenge, we propose to refer to

the relevant dates and materials relating to the departmental proceeding

which ended up in his dismissal from service.

3. The writ petitioner, a Junior Engineer, under the office of the

District Magistrate & Collector, West Tripura, Agartala, was proceeded

against under two articles of charges of grave misconduct vide memorandum

dated 28.03.2015 (Annexure-2) in terms of the Rule 14 of the CCS (CC&A)

Rules, 1965. The articles of charges are as under:

ARTICLE I Shri Bikash Bhowmik, Junior Engineer of Dukli R.D Block (now under suspension) while functioning as J.E. in O/o the B.D.O. Mohanpur R.D. block had accumulated amount disproportionate to his income for which the Hon'ble Lokayukta, Tripura had, after making a thorough investigation through evidence both the oral and documentary, heard the complainant Smti Srabani Dus and the opposite party Shri Bikash Bhowmik in person against Case No. C.C. No.2 (LOK)/2012 and had been constrained to hold that the

allegations made in the complaint are substantiated. Such act of accumulation of huge amount disproportionate to income by Shri Bhowmik, J.E. (RD) is in violation of TCS Conduct Rule. The details are set-forth in Annexure-II.

ARTICLE II Shri Bikash Bhowmik, J.E. (now under suspension), having regard to the facts & circumstances, had been alleged by the Hon'ble Lokayukta, Tripura against Case No. C.C. No.2(LOK)/2012 for committing offence under the prevention of corruption Act 1988. The act of committing offence by Shri Bhowmik. J.E. (RD) is in violation of TCS Conduct Rule. The details are set-forth in Annexure-II.

4. The statement of imputation of misconduct in support of each

article of charges alleged inter alia as follows:

ARTICLE - I Shri Bikash Bhowmik, Junior Engineer of Dukli R.D Block (now under suspension) while functioning as J.E. in O/o the B.D.O. Mohanpur R.D. block had accumulated amount disproportionate to his income for which the Hon'ble Lokayukta, Tripura had, after making a thorough investigation through evidence both the oral and documentary, heard the complainant Smti Srabani Das and the opposite party Shri Bikash Bhowmik in person against Case No. C.C. No.2 (LOK)/2012 and had been constrained to hold that the allegations made in the complaint are substantiated. Such act of accumulation of huge amount disproportionate to income by Shri Bhowmik, JE (RD) is in violation of TCS Conduct Rule.

According to Judgement made by the Hon'ble Lokayukta, Tripura vide Case No. C.C.No.2 (LOK)/2012, Shri Bikash Bhowmik, JE (now under suspension) had created assets during the period 1998 to March, 2012 for a sum of Rs.74,26,472/- whereas the concerned JE had a total income amounting to Rs.22,13,279/- from his salary during the period from 1998 to March 2012.

ARTICLE-II Shri Bikash Bhowmik. J.E. (now under suspension), having regard to the facts & circumstances, had been alleged by the Hon'ble Lokayukta, Tripura against Case No.C.C. No.2(LOK)2012 for committing offence under the prevention of corruption Act 1988. The act of committing offence by Shri Bhowmik, J.E. (RD) is in violation of TCS Conduct Rule.

The Judgement passed by the Hon'ble Lokayukta, Tripura shows that Shri Bhowmik, JE(RD) had created assets during the period 1988 to March 2012 for an amount of Rs.74.26,472/- whereas he earned from salary Rs.22,13,279/- only during the period. It has been determined in the judgement that out of the aforesaid sum earned, the minimum amount for Rs.8,85,312/- can be deducted towards family expenses and therefore, his total asset should be Rs.13,27,967/- as 60% of his total income. Also it has been noted in the Judgement that the sum of Rs.74,26,472/- is vastly disproportionate to his known source of income and he committed an

offence under Section 5(1)(e) which is equivalent to Section 13(1)(e) of the Prevention of Corruption Act. 1988.

The Hon'ble Lokayukta, Tripura, through its judgement, has also recommended actions to be taken up against the concerned J.E. According to Judgement made by the Hon'ble Lokayukta, Tripura vide Case No.C.C. No.2 (LOK)/2012, an FIR against Shri Bikash Bhowmik. J.E, R.D (now under suspension) has been lodged on 23.08.2014 at Sidhai P.S. by the BDO, Mohanpur R.D Block vide letter No. F. 50(1) /BDO /MNP /LOKAYUKTA /2014/4428-29 dated 23.08.2014 and the concerned J.E., RD had been suspended vide order No.F.7(10)-DM/W/ESTT/Lokayukta/2014/7556-60 dated 02.09.2014.

5. The following list of documents was proposed to be adduced to

sustain the charges:

a. Copy of the Judgement passed by the Hon'ble Lokayukta, Tripura against Case No.C.C. No.2 (LOK)/2012 (ANNEXURE-1). b. Copy of letter vide No. F. 50(1)/ BDO/ MNP/ LOKAYUKTA/ 2014/4428-29 dated 23.08.2014 of the B.D.O, Mohanpur R.D. Block through which FIR was lodged (ANNEXURE-2). c. Copy of order meant for suspension of Shri Bikash Bhowmik, J.E. (RD) vide No.F.7(10)-DM/W/ESTT/Lokayukta/2014/7556-60 dated 02.09.2014 (ANNEXURE-3).

6. The following witnesses were proposed to be adduced to sustain

the charges:

a) Shri S. Chakraborty, Block Development Officer, Mohanpur R.D. Block, West Tripura.

b) Shri S. K. Das, Addl. Director, S.C. Welfare Department.

           c)         Shri Narayan Das.
           d)         Shri Sanjib Choudhury.
           e)         Shri Anupam Chakraborty.
           f)         Shri Abhijit Sankar Das.
           g)         Shri Niren Baran Paul.


7. The inquiry officer exonerated the writ petitioner of the charges

vide his report dated 24.06.2021 (Annexure-4). The findings of the inquiry

officer on both the article of charges are as under:

Point No.1.

The Accused Officer namely, Shri Bikash Bhowmik, Junior Engineer Gr. II had rendered services in the office of BDO, Salema RD Block, O/o the Executive Engineer, RD Ambassa Division; O/o BDO, Mohanpur RD Block and O/o BDO, Dukli RD Block since his

joining in Government service on 9th September, 1998 to till date. There are no any specific complaints/allegations submitted by the concerned Executive Engineer, RD Ambassa Division and concerned BDOs regarding misappropriation/defalcation of huge amount of Govt. funds in respect of those works which were entrusted to him as Implementing Officer while serving under their control & supervision.

The Presenting Officer and the Prosecution Witnesses did not exhibit any documents such as Salary Statement, Bank Statements, Bank Pass Books, Fixed Deposit Certificates, insurance Policies, Registration Certificate of vehicles, land documents etc. issued by the competent authority and duly certified by them in respect of the Accused Officer to prove that the Accused Officer was having disproportionate assets worth Rs.74,26,472/-only. Due to lack of sufficient and valid documentary evidences, the Prosecution side had failed to prove that the allegations brought against the AO by the Disciplinary Authority had been sustained/established.

The Disciplinary Authority had not included the name of the complainant namely, Smt. Srabani Das, W/o Shri Subhra Sankar Laskar, J.E. Gr. I in the list of Prosecution Witnesses in Annexure-IV of the Charge Sheet. It may be noted here that on the basis of a complaint lodged by Smt. Srabani Das with the Lokayukta regarding possession of disproportionate assets by the Accused Officer, the Hon'ble Lokayukta had passed the judgment & order on 24.01.2013 in Case No. CC No. 2 (LOK)/2012 and recommended for taking necessary action against Shri Bikash Bhowmik, JE Gr-I, regarding possession of disproportionate assets worth Rs.74,26,472/-only.

As such, there was no scope on the part of the Inquiring Authority to record the statement of the complainant namely, Smt. Srabani Das and to examine and cross-examine the complainant on what basis/grounds she had lodged her complaint with the Hon'ble Lokayukta against the Accused Officer.

The Accused Officer in his written brief of argument had also pointed out that the name of the complainant had not been included in the list of Prosecution Witnesses and as a result there was so scope to examine her in order to find out the actual truth behind such complaint against him.

In view of the facts stated above, I am of the considered opinion that the Accused Officer namely, Shri Bikash Bhowmik, JE Gr.1 had not committed any gross misconduct or misbehavior by accumulating disproportionate assets worth Rs.74,26,472/- only which attracts the Tripura Civil Services (Conduct) Rules, 1988. As such, the decision for Point No.I goes in favour of the Defence side and against the Prosecution side.

Point No. 2.

Since the decision for the Point No.I goes in favour of the Defence side i.e. AO and against the Prosecution side, the decision for Point No. 2 also goes in favour of the Defence side and against the Prosecution side. Thus, the Accused Officer had not violated Rule 3 of the Tripura Civil Services (Conduct) Rules 1988.

Viewed in the above perspective and based on materials and evidences of both the parties and their written brief of arguments, I find and hold that the Prosecution had failed to establish /sustain the Article of Charges brought against the AO. Therefore, the charges brought / framed against the Accused officer namely, Shri Bikash Bhowmik, Junior Engineer Gr.1 (under suspension), O/o the Block Development Officer, Dukli RD Block is not sustained / established and accordingly decided as found not guilty.

8. The disciplinary authority issued a disagreement note on

29.04.2022 (Annexure-5) with the observation that the inquiry officer had

failed to appreciate all the terms and take judicious decision. The disciplinary

proceedings are based on preponderance of probability and not only on

documentary evidence. The act of the AO, Sri Bikash Bhowmik, Junior

Engineer indicates that his integrity is under doubt.

9. The writ petitioner submitted his representation to the

disagreement note through proper channel on 05.7.2022 (Annexure-7) inter

alia taking a number of pleas that the charges have not been established in the

departmental proceeding as no proof of disproportionate assets have been

adduced. The complainant, Smt. Sarbani Das was not even cited as a witness

of the prosecution. The inquiry was undertaken on false and fake allegations.

The burden of proof is always on the prosecution. The disciplinary authority

did not accept the reply of the charged officer and sought concurrence of the

Tripura Public Service Commission (TPSC, for short) on the proposed

penalty of dismissal from service vide order dated 09.09.2022 (Annexure-8).

The TPSC concurred with the proposal of the Principal Secretary, Rural

Development Department, Government of Tripura. Thereafter, the penalty of

dismissal from service was imposed vide order dated 15.10.2022 (Annexure-

10) by the Principal Secretary, Government of Tripura (Disciplinary

Authority).

This penalty was set aside vide judgment dated 22.11.2022

passed by the writ Court in WPC No.987 of 2022 (Annexure11). The

Disciplinary Authority was directed to pass a fresh order.

10. The writ petitioner again made a representation to the

disciplinary authority on 12.12.2022 (Annexure-13) and requested to drop the

departmental proceeding. However, the disciplinary authority again passed an

order of dismissal from service on 27.12.2022 (Annexure-15) inter alia

holding as under:

"WHEREAS, in pursuance with the order passed by the Hon'ble High Court of Tripura, Shri Bikash Bhowmik. Junior Engineer Gr-l given an opportunity to present physically in hearing before the Disciplinary Authority on 09/12/2022 at 11:00 AM to explain the factual status on charges framed against him in Article-I, "Shri Bikash Bhowmik, Junior Engineer Gr-I while functioning as Junior Engineer attached to the O/o the BDO, Mohanpur RD Block has accumulated amount disproportionate to his income............

Such act of accumulation of huge amount disproportionate to income by Shri Bikash Bhowmik, Junior Engineer Gr-I................. had created assets during the period to March, 2012 for a sum of Rs.74,26,472/- whereas the concerned JE has a total income amounting to Rs.22,13,279/- from his salary during the period from 1998 to March, 2012" and Article-II:- "Shri Bikash Bhowmik, Junior Engineer Gr-I having regard to the facts & circumstances had been alleged............. for committing offence under the prevention of corruption Act, 1998. The act of committing offence by Shri Bikash Bhowmik, Junior Engineer Gr-I is in violation of TCS Conduct Rule..................... Shri Bikash Bhowmik, Junior Engineer Gr-I has created assets during the period 1998 to March, 2012 for an amount of Rs.74,26,472/-, whereas he earned from salary Rs.22,13,279/ only during the period............. out of the aforesaid sum earned, the minimum amount for Rs.8,85,312/- can be deducted towards family expenses and therefore, his total asset should be Rs.13,27,967/- as 60% of his total income. Also, it has been noted in the Judgment that the sum of Rs.74,26,472/- is vastly disproportionate to his known source of income and he committed an offence under Section 5(1)(c) which is equivalent to Section 13(1)(e) of the Prevention Corruption Act, 1988......"

AND WHEREAS, Shri Bikash Bhowmik, Junior Engineer Gr-I (Accused Officer) has submitted his written reply on 12/12/2022:

AND WHEREAS, a time petition was filed and in response the Hon'ble High Court of Tripura considered the petition on 19/12/2022 with the following remarks "Direct the petitioner-respondent, Sri Bikash Bhowmik to submit representation within 7(seven) days from today. After receipt of the representation, if any, the respondent- petitioner will dispose of the representation of the petitioner- respondent within 3 (three) weeks thereafter"

AND WHEREAS, the factual status on the reply of the Accused Officer submitted on 12/12/2022:-

The Accused Office (AO) has denied all charges framed against him and pleaded that he has not accumulated any asset beyond his known source of income. AO has also referred the findings of the Inquiry Authority which couldn't sustained/established the charges framed against the Accused Officer. He also alleged that the principle of natural justice was not followed in his case as he was not served with the concurrence advice of the TPSC to the disagreement proposal of Disciplinary Authority.

AND WHEREAS, the salary statement of Shri Bhowmik (AO) reflects that his total income from salary is Rs.22,56,475/- during the period from 1998 to March 2012. But after assessing all relevant documents such as bank statements, post office deposits, insurance and taking into consideration rough analysis of his immovable and movable properties, it is evident that Shri Bhowmik (AO) has accumulated assets beyond his known source of income, which has been enumerated in Article-I and II of charge-sheet

NOW, THEREFORE, after giving the Accused Office an opportunity of being heard to establish the principle of natural justice and carefully analysing the written reply of the Accused Officer along with all relevant documents such as his bank statements, assessment of building plan by PWD (R&B) and other statements/documents in connection with the immovable and movable property of Accused Officer, it becomes established fact beyond doubt that the Accused Officer has accumulated assets beyond his known sources of income during the period from 1998 to March 2012.

Since Shri Bhowmik holding a public office of Junior Engineer Gr-I and any kind of such allegation of disproportionate of assets have far reaching consequences in general public at large and malign the public offices in general, there is no other option but to impose major penalty for discouraging such action and to imbibe a sense of morality among the public servant, who are doing their duty diligently and sincerely.

In view of the above, to instill confidence in the public service. I have independently applied my analytical mind, do hereby impose a major penalty under Rule-11 (ix) of CCS (CC&A) Rules 1965 i.e. "Dismissal from service which shall ordinarily be a disqualification for future employment" upon Shri Bikash Bhowmik, Junior Engineer Gr-I (Accused Officer)."

11. The writ petitioner, being aggrieved, has approached the learned

writ Court in WP(C) No.96 of 2023. By the impugned judgment dated

19.07.2023, the order of penalty of dismissal from service has been set aside

with a direction to reinstate the writ petitioner with all consequential benefits.

The operative part of the impugned judgment is also extracted hereunder:

"6. It is evident from the record that though an allegation has been raised that the petitioner has accumulated unaccounted wealth disproportionate to his income, but, the count of those wealth has not been given or pinpointed as to where the petitioner has accumulated it. No bank statements or property has been mentioned by the respondent authorities. Further, the respondents have not given proper reasons and passed a detailed order while imposing punishment on the petitioner herein. Even in the A.R. Srinivasan(supra), the Full Bench of Hon'ble Apex Court stated that the authorities have to pass a detailed order while imposing punishment in a Disciplinary proceeding, but the same has not been followed in the case at hand. The inquiry report since not accepted no reasons to is given indicating as to what portion of the report is not accepted. It is against Rule 15 of CCS CCA Rules.

7. In view of the above reasons, the present writ petition is allowed and the impugned Order is set aside. The petitioner is reinstated into his service with all consequential benefits. However, this Court has taken into consideration the prima facie allegations of disproportionate assets against the petitioner herein and directs the respondents that while reinstating the petitioner to his service, he

should not be posted to the original place of posting instead the petitioner should be posted elsewhere in the same rank.

8. As a sequel, stay if any stands vacated. Pending application(s), if any also stands closed."

12. On behalf of the appellant-State, the following submissions have

been made:

(a) The Constitution Bench has clearly laid down that even

after the charges which have been proved, justify imposition of

penalty, the Hon'ble Court may not exercise its power of judicial

review. The settled legal position is that if there is some legal

evidence on which the findings can be based, then adequacy or

even reliability of that evidence is not a matter for canvassing

before the High Court in a writ petition filed under Article 226

of the Constitution.

(b) The power of judicial review, in the matters of

disciplinary inquiries, exercised by the departmental/ appellate

authorities, discharged by Constitutional Courts under Article

226 or Article 32 or Article 136 of the Constitution of India is

circumscribed by limits of correcting errors of law or procedural

errors leading to manifest injustice or violation of principles of

natural justice and it is not akin to adjudication of the case on

merits as an appellate authority.

(c) The disciplinary authority is the sole judge of facts.

Where appeal is presented, the appellate authority has

coextensive power to re-appreciate the evidence or the nature of

punishment. He has referred to the decisions of the Apex Court

in the case of (i) High Court of Judicature at Bombay Versus

Shashikant S. Patil and another reported in (2000) 1 SCC 416;

(ii) B.C. Chaturvedi Versus Union of India and others reported

in (1995) 6 SCC 749; (iii) Pravin Kumar Versus Union of India

and others reported in (2020) 9 SCC 471; (iv) State Bank of

Bikaner and Jaipur Versus Nemi Chand Nalwaya reported in

AIR 2011 SC 1931.

(d) That the writ petitioner had alternative remedy available

for preferring appeal before the Appellate Authority challenging

the penalty order passed by the Disciplinary Authority

(Secretary, RD Department). In view of notification vide no.

F.5(1)-GA(AR)/2002/P-II/113, dated 11-01-2019 issued by the

GA(AR) Department, Govt. of Tripura, the Appellate Authority

is Chief Secretary, Govt. of Tripura for the present case of the

writ petitioner. But the petitioner did not avail the route of

alternative remedy for filing appeal as per Rule -23 of

CCS(CCA) Rules, 1965 and instead the petitioner filed the writ

petition directly against the penalty order issued by the

Disciplinary Authority. Therefore, the writ petition is liable to be

dismissed as the writ court should not exercise the power of

judicial review under Article 226 of the Constitution of India as

there is efficacious alternative remedy was available but not

availed of by the writ petitioner.

13. On behalf of the writ petitioner/respondent the following

submissions have been made:

(a) Even though, in the Articles of Charge, seven witnesses

were cited as Prosecution Witnesses, but only three witnesses,

namely, Sri Swapan Kumar Das, Senior Deputy Magistrate

(Retired), Sri Sandeep Chakraborty, SDM, Kumarghat and Sri

Narayan Das were examined (at Pages-70 to 71 of the Paper

Book). Curiously, the complainant, Smt. Sarbani Das was not

cited as a Prosecution Witness.

(b) PW-1 Sri Swapan Kumar Das, Senior Deputy Magistrate

(Retired) stated that he does not know the writ petitioner, nor

was he aware of the allegations levelled against him.

(c) PW-2 Sri Sandeep Chakraborty stated that he does not

know as to whether the writ petitioner had acquired

disproportionate assets, and without verifying the actual fact, he

had lodged the complaint against the petitioner, under the

direction of the superior officers.

(d) PW-3 Sri Narayan Das also stated that he does not know

the petitioner, nor was he aware of the Charges levelled against

him.

(e) Even though, in the List of Documents, as contained in the

Articles of Charge, three documents were mentioned, but none

of the said three documents were exhibited (Page-72 of the Paper

Book).

(f) Even the Salary Statement, Bank Statements, Bank Pass

Books, Fixed Deposit Certificates, Insurance Policies,

Registration Certificates of the vehicles of the writ petitioner was

not entered into the List of Documents (Page-54 of the Paper

Book), nor the said Documents were exhibited (Page 74 of the

Paper Book).

(g) It is most humbly respectfully submitted that in the

absence of proof of the said documents, and on the teeth of the

depositions of the said witnesses, by no stretch of imagination, a

case of disproportionate assets can be made out.

14. Mr. Somik Deb, learned senior counsel for the writ

petitioner/respondent submits that the departmental proceeding has been

initiated by the District Magistrate and Collector, West Tripura vide

memorandum dated 28.03.2015 (Annexure-2) against the writ petitioner

without prior approval of the concerned minister. The impugned order of

punishment dated 27.12.2022 (Annexure-15) has been passed by the

Principal Secretary, Rural Development Department, Government of Tripura

also without prior approval of the concerned minister. Therefore, initiation of

the proceedings and its culmination by the order of dismissal both suffer from

absence of approval of the competent authority. He has referred to the

decisions of the Apex Court in the case of (i) Union of India and others

Versus B.V. Gopinath rendered in (2014) 1 SCC 351; (ii) S.P. Malhotra

Versus Punjab National Bank and others Reported in (2013) 7 SCC 251.

The order of disagreement dated 29.04.2022 (Annexure-5) and the order of

punishment dated 27.12.2022 (Annexure-15) does not refer to any evidence

collected during course of the inquiry and the tentative reasons for his

disagreement with the findings of the inquiry authority as mandated under

Rule 15(2) of the Central Civil Services (Classification, Control and Appeal)

Rules, 1965. The concurrence by the TPSC does not meet the sufficient

compliance of the requirements of Rule 15(3) of the Central Civil Services

(Classification, Control and Appeal) Rules, 1965 read with Article 320(3)(c)

of the Constitution of India. The impugned order of punishment is also

unsustainable in law as it fails to record reasons to support the major penalty

of dismissal from service. Learned senior counsel for the writ

petitioner/respondent has referred to Article 166 of the Constitution of India

and the Rules of Executive Business of the Government of the State of

Tripura, 1972 (Business Rule, for short) in particular Rules 30A and 30B

which relegate the power upon the competent authority to initiate disciplinary

proceedings and to impose penalty upon any officers of the State

Government. It is the case of the writ petitioner that it is the minister of the

concerned department who was the competent authority for initiation of the

departmental proceedings. Reliance is also placed upon the office

memorandum dated 16.04.1969 issued by Ministry of Home Affairs,

Government of India. He submits that there is nothing on record to show that

any point of time, the approval of the concerned Minister, Tripura was taken,

either at the time of issuance of the initial Order of drawing of the article of

charges or at the subsequent stages.

15. Learned senior counsel for the writ petitioner/respondent also

submits that the order of penalty of dismissal from service is not sustainable

in law. The impugned judgment, therefore, does not require any interference.

There is absolutely no material on record of the inquiry proceedings to justify

any findings of acquisition of disproportionate assets by the writ petitioner

while serving as a junior engineer at the relevant point of time. Merely on the

basis of the recommendation of the learned Lokayukta, the penalty of

dismissal cannot be sustained as none of the ingredients to support the charge

of acquisition of disproportionate assets have been laid before the inquiry

officer, i.e. such as the gross salary of the writ petitioner earned during the

subject period from the known sources. None of the details of the assets of

the writ petitioner have been placed during the inquiry proceeding to

substantiate the charges that these were acquired beyond his known sources

of income. The inquiry officer has in categorical terms rendered findings that

the presenting officer and the prosecution witnesses did not exhibit any

documents such as salary statements, bank statements, bank pass books, fixed

deposit certificates, insurance policies, registration certificates of the

vehicles, land documents etc. issued by the competent authority and duly

certified by them in respect of the accused officer to prove that he was having

disproportionate assets worth Rs.74,26,472/- only. The three witnesses out of

seven who appeared during inquiry proceeding completely denied any

knowledge of such acquisition of property by the writ petitioner. In the

absence of any tangible proof, the learned inquiry officer rightly exonerated

the writ petitioner. He submits that even in a departmental proceeding, if the

charges are serious and quasi-criminal in nature, the standard of proof should

be more stringent as it reflects on the integrity of the person and may also

lead to criminal prosecution. The prosecution has miserably failed to

establish any of the charges of such serious nature of acquisition of

disproportionate assets against the petitioner. Therefore, the learned writ

Court has rightly set aside the impugned judgment.

16. We have considered the submissions of the learned counsel for

the parties and also taken note of the relevant materials placed from record.

During course of the proceedings on the previous date, taking note of the plea

raised by the writ petitioner and the State in that regard, the Secretary, Rural

Development Department and the District magistrate & Collector, West

Tripura were asked to appear with the relevant records of the departmental

proceedings in order to properly assist the Court. The officers, namely, Sri

Abhishek Singh, Secretary, RD Department, Government of Tripura, and Dr.

Vishal Kumar, DM & Collector, West Tripura, are present. The Secretary,

RD Department, Government of Tripura, has not disputed that the order of

penalty was passed without approval of the concerned minister. It is also

pointed out that when the departmental proceedings were initiated vide

memorandum dated 28.03.2015, the writ petitioner was not a gazetted officer.

Such proceedings were initiated by the District Magistrate & Collector, West

Tripura. It is also pointed out that at the stage of issuance of the disagreement

note, the concurrence of the Hon'ble Minister was taken. The Rules of

Executive Business framed under Article 166 of the Constitution of India

delegate the powers of disciplinary authority for different cadres of the

employees of the State Government. Absence of approval of the competent

authority before issuance of the order of penalty of dismissal from service in

the case of a gazetted officer which the petitioner enjoyed at the time of the

passing of the dismissal order, therefore is a legal infirmity which goes to the

root of the matter. [See: Union of India & others vrs. Paul George reported

in (2014) 1 SCC 351, paragraphs-40, 41 & 52]

17. Apart from that, on scrutiny of the relevant records relating to

the departmental proceeding, it transpires that none of the three prosecution

witnesses, out of seven, did support the charge. No documentary evidence

such as salary statement, bank statements, bank pass books, fixed deposit

certificates, insurance policies, registration certificate of vehicles, land

documents etc. in respect of the writ petitioner were evidenced which could

show his total income during the subject period and the assets to the tune of

Rs.74,26,472/- alleged to be acquired disproportionate to his known sources

of income. In the wake of such lack of material evidence, the inquiry officer

exonerated the writ petitioner from the charges. The disagreement note issued

by the disciplinary authority thereafter does not reflect any grounds for his

tentative findings differing with the report of the inquiry officer except what

has been referred to hereinabove. Though the report of the Lokayukta was

listed as a document under the memorandum of charges but none of the three

witnesses adduced it during the inquiry proceedings.

18. Sri Narayan Das, PW-3 in his deposition stated that he did not

recall whether he had appeared before the Lokayukta for deposition/ giving

evidence in relation to case No. CC No.2(LAW)/2012 (Smt. Shrabani Das

Versus Bikash Bhowmik).

Sri Sandip Chakraborty, PW-2 in his deposition stated that as

per the judgment and order passed by the Lokayukta, he came to know that

the total income from the salary in respect of the AO during the period from

1998 to March, 2012 was Rs.22,13,279/- only. However, he has also stated

that he had not received any documents relating to the monthly salary of the

AO for the period from 1998 to March, 2012 from DM's office, West

Tripura reflecting his pay and allowances and deductions etc. showing the

total salary income of Rs.22,13,279/- for the aforesaid period. He had lodged

the FIR based on the instructions given to him by the higher authorities. He

also could not recall whether he had issued work orders to the AO for

implementation of various schemes under MGNREGA, BADP and Housing

etc. when he was posted as BDO, Mohanpur RD Block. In his cross-

examination he denied having conducted any verification in the Banks & Post

Offices regarding any deposit of money by the AO.

Sri Swapan Kumar Das, PW-1 in his deposition clearly stated

that he did not know the accused officer. He was not aware of the charges

framed against him. During that material period, he was posted as Senior

Deputy Magistrate, DM's Office, West Tripura District, Agartala. He had

joined in the year 2011-12 and served till the year 2015-16. He has also stated

that he could not recall whether he had collected any statement or information

from the AO regarding accumulation of assets (movable, immovable

including bank balances) involving Rs.74,26,472/-. He did not know from

what sources the AO had accumulated the total amount of assets worth

Rs.74,26,472/- only while serving as Junior Engineer in different offices. He

did not recall whether any statement was prepared by him or any statement

was collected from any office where the AO was posted regarding total

amount of Rs.22,13,279/- only being the salary/income as Junior Engineer

during the period from 1998 to March, 2012.

19. Evidently the prosecution could not place incriminating

materials through cogent oral as well as documentary evidence relating to the

charge of acquisition of disproportionate assets during that period. Even on

remand, the fresh penalty order passed by the Secretary, RD Department only

records after referring to the articles of charges that his salary statement for

the period from 1998 to March, 2012 shows his income as Rs.22,56,475/-

but after assessing all relevant document such as bank statements, post office

deposits, insurance and taking into consideration rough analysis of his

immovable and movable properties, it is evident that Shri Bhomik has

accumulated assets beyond his known source of income, which has been

enumerated in Article I and II of charge-sheet. It further records that the

accused officer has been granted an opportunity of hearing in compliance

with the principles of natural justice. His written reply has also been

considered along with relevant documents such as bank statements,

assessment of building plan by PWD(R&B) and other statements/documents

in connection with his immovable and movable property which establishes a

fact beyond doubt that the AO has accumulated assets beyond his known

sources of income during the period from 1998 to March, 2012. However,

these materials purportedly referred to by the disciplinary authority were not

placed during the inquiry proceedings. Therefore, these findings are incorrect

and beyond the records of the departmental proceeding.

20. On behalf of the appellants, reliance is placed on the case of

Shashikant S. Patil and another (supra). The Apex Court has held that the

disciplinary authority is the sole judge of facts if the enquiry has been

properly conducted. If there is some legal evidence on which findings can be

based then adequacy or even reliability of that evidence is not a matter to be

canvassed under Article 226 of the Constitution of India.

In the present case as held above, the prosecution has failed to

substantiate the charges during inquiry by way of cogent legal evidence.

Therefore, Inquiry Officer had exonerated the petitioner/charged officer. The

disciplinary authority has while imposing the penalty of dismissal from

service sought to rely upon materials such as, bank statements, post office

deposits, rough analysis of the immovable and movable properties of the

charged officer without they be adduced during the inquiry proceedings. As

such, the order of penalty of dismissal was based upon no legal evidence. It is

not a case where the adequacy or reliability of an evidence is in question.

21. The case of B.C. Chaturvedi (supra) relates to the departmental

proceeding on charges of acquisition of assets disproportionate to his known

source of income of the charged officer. It is seen from the facts of the said

case that the inquiry officer had on the basis of the materials held the charges

to be proved against the appellant. The learned Central Administrative

Tribunal had appreciated the evidence and upheld the charges but converted

the order of dismissal into one of compulsory retirement. In such a case, the

Hon'ble Apex Court allowed the appeal of the Union of India while

dismissing that of the delinquent and observed that the findings or

conclusions must be based on some evidence though neither the technical

rules of Evidence Act nor of proof of fact or evidence defined therein, would

apply to disciplinary proceeding. Adequacy of evidence or reliability of

evidence cannot be permitted to be canvassed before the Court/Tribunal. The

disciplinary authority is the sole judge of facts. If the evidence and the

conclusion derived by the disciplinary authority are based on findings of fact,

the Court in its power of judicial review should not act as an appellate

authority to reappreciate evidence and to arrive at its own independent

findings on the evidence. The Court/Tribunal may interfere where the

authority has acted in a manner inconsistent with the rules of natural justice

or in violation of statutory rules prescribing the mode of inquiry or where the

conclusion or finding reached by the disciplinary authority is based on no

evidence. If the conclusion or finding be such as no reasonable person would

have ever reached, the Court/Tribunal may interfere with the conclusion or

the finding, and mould the relief so as to make it appropriate to the facts of

that case.

In the present case, apparently the prosecution had failed to

produce material evidence to substantiate the charge of disproportionate

assets allegedly acquired by the charged officer. Therefore, the inquiry officer

had exonerated the charged officer.

The order of penalty imposed by the disciplinary authority has

sought to rely upon materials which were never produced during inquiry or

confronted to the delinquent officer.

22. Same principles have been reiterated by the Apex Court in the

case of Pravin Kumar (supra) wherein the case of B.C. Chaturvedi referred

to hereinabove has also been relied upon.

In view of the reasons recorded in the foregoing paragraphs and

the discussions made hereinabove, the instant decision also does not come to

the aid of the appellants as the order of dismissal from service imposed by the

disciplinary authority even after remand was not based upon any materials

produced during the inquiry there were no such material evidence to support

such a finding.

23. The decision in the case of Nemi Chand Nalwaya (supra) relied

upon by the appellants is also of no aid for the above reasons. In the case of

Nemi Chand Nalwaya (supra) at paragraph-6 of the report, the Apex Court

has reiterated that the Courts will not interfere with findings of fact recorded

in a departmental inquiry, except where such findings are based on no

evidence or where they are clearly perverse.

In the present case, the Inquiry Officer had exonerated the

charged officer as the prosecution had failed to establish the charges of

acquisition of disproportionate assets. The order of the disciplinary authority

has been set aside by the learned Writ Court. Upon scrutiny of the records of

the departmental proceeding, this Court has come to a conclusion that the

findings of the disciplinary authority and the order of dismissal were not

based on any materials adduced during inquiry. In fact, the prosecution had

completely failed to establish the charges. As such, the decisions relied upon

by the appellants are of no help in the facts of the present case.

24. The logical inference which flows out of the discussion made

hereinabove is that the respondent-employer had failed to establish the

charges leveled against the writ petitioner during the disciplinary inquiry. The

order of penalty also suffers from legal infirmities such as absence of

sanction of the competent authority before imposition of the punishment. The

learned writ Court though has not made any detail discussion on these issues

but on a comprehensive review of the entirety of the materials on record, this

Court does not find any basis to uphold the order of penalty rendered by the

disciplinary authority i.e. the Secretary, RD Department, Government of

Tripura. It may, however, be also pointed out that the writ petitioner is facing

criminal proceedings for acquisition of disproportionate assets being case No.

Special (PC) 01 of 2021 before the learned Special Judge, (Court No.4), West

Tripura, Agartala. The appellants-State has by way of an additional affidavit

filed during proceedings of this case, brought on record the order sheet of the

criminal case pending before the learned Special Judge, West Tripura,

Agartala. After going through the same, this Court had taken note that the

charge sheet in the disproportionate assets case was filed on 23.10.2021 but

till date charges have not been framed. This Court, however, refrains from

making any observations in respect of the criminal proceedings being

prosecuted against the writ petitioner. Observations, if any, made by us in the

present order would not influence the learned trial Court in the criminal

proceedings as they are confined to testing the legality and correctness of the

impugned order of penalty of dismissal from service imposed upon the writ

petitioner in a departmental proceeding.

25. For all the above reasons, this Court therefore, is not inclined to

interfere in the impugned judgment whereby the penalty of dismissal from

service has been set aside with a direction to the respondent-employer to

reinstate him with consequential benefits. However, we are of the view that

the directions issued by the learned writ Court regarding his posting were

uncalled for. Such a decision is left to be taken by the employer in line with

settled principles of the Service Rules. This part of the impugned direction is,

therefore, set aside.

26. The instant appeal is disposed of in the manner and to the extent

indicated above.

As a sequel, interim order, if any, stands vacated. Pending

application(s), if any, also stands disposed of.

(S. D. PURKAYASTHA), J                                          (APARESH KUMAR SINGH), CJ



Munna S   MUNNA SAHA   Digitally signed by MUNNA SAHA
                       Date: 2025.03.20 14:19:20 +05'30'
 

 
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