/2022 INSC 0936/ IN THE SUPREME COURT OF INDIA CIVIL APPELLATE JURISDICTION SLP (CIVIL) NO(S). 16325­16326 OF 2022 DR. MANIK BHATTACHARYA                …..PETITIONER(S) VERSUS RAMESH MALIK AND OTHERS        …..RESPONDENT(S) WITH SLP (CIVIL) NO(S).17649­17650/2022 SLP (CIVIL) NO.17412/2022 SLP (CIVIL) NO. 17137/2022 SLP (CIVIL) NO(S). 17044­17045/2022 SLP (CIVIL) NO.17208­17209/2022 SLP (CIVIL) NO.17756/2022 O R D E R 1. The   present   set   of   petitions   except   SLP(C)Nos.17649­ 17650/2022 arises out of a judgment of a Division Bench of the High Court at Calcutta delivered on 2 nd   September 2022, 1 | P a g e sustaining,   in   substance   a   set   of   orders   passed   by   a   Single Judge   directing   investigation   by   the   CBI   into   the   allegations of   irregularities   in   the   recruitment   process   of   Assistant Primary   Teachers.   Such   recruitment   took   place   through   the Teachers   Eligibility   Test   (TET)   examination   2014   which   was held   in   the   year   2015.   A   slew   of   other   directions   has   also been issued by the Single Judge and we shall refer to them to the   extent   necessary   later   in   this   order.   Altogether   23   lakh candidates participated in the selection process for filling up approximately   43,000   vacancies   and   about   40,000 candidates   were   appointed.   SLP(C)Nos.17649­17650/2022 has been filed by the petitioner in SLP(C)Nos.16325­16326 of 2022 directly   assailing the order of the Single Judge passed on 27 th   September, 2022 (in WPA No.2005 of 2022 and WPA No.15010   of   2022)   by   which   the   Central   Bureau   of Investigation   (CBI)   was   directed   to   register   a   case   and   take certain steps in relation to OMR sheets of the candidates who took part in the said examination. 2. The   Division   Bench   considered   in   the   impugned judgment/   orders   passed   in   two   writ   petitions   brought   by unsuccessful candidates. In the first writ petition (registered 2 | P a g e as WP No. 7907 of 2019) applicants were Ramesh Malik and eight other aspirants for the said posts and this writ petition was filed in the year 2019. The petitioners in this proceeding sought cancellation of appointment of the private respondent impleaded   therein,   inter­alia,   on   the   ground   that appointments were made through corrupt process and not on the   basis   of   merit   and   performance   of   the   successful candidates.   In   the   other   writ   petition   filed   by   one   Soumen Nandy,   registered   as   WPA   No.   9979   of   2022,   complaint   was non­disclosure  of  certain  informations  with  regard  to  the  68 candidates   pertaining   to   their   answer   scripts.  These   were   in OMR   sheets.   From   the   prayers   of   the   petitioner   in   the   said writ application, a copy of which has been annexed to SLP (C) No.   17137   of   2022,   we   do   not   find   particulars   of   the information   he   has   asked   for.   In   both   the   writ   petitions, however,  Court  monitored  CBI   investigation   had   been   asked for.  3. There   are   also   certain   other   writ   petitions   filed questioning   legality   of   the   recruitment   process,   but   orders passed   in   these   proceedings   do   not   appear   to   have   been appealed   against   before   the   Division   Bench   in   the   judgment 3 | P a g e which   has   been   assailed   before   us.   In   the   judgment impugned   in   this   batch   of   proceedings,   the   Division   Bench dealt with a set of orders passed on 13 th  June, 15 th  June, 17 th June,   20 th   June   and   21 st   June,   2022.   The   next   series   of orders,   as   we   find   from   the   materials   available   before   us, were passed on 19 th   July, 20 th   July, 22 nd   July, 25 th   July, 29 th July   and   1 st   September   2022.   These   orders   were   not   under appeal before the Division Bench but they are linked with the first set of orders.   4. The orders and directions passed by the Single Judge  in the month of June can be categorized under three heads:­ (i)     Investigation by Central Bureau of Investigation Direction   has   been   issued   by   the   Single   Judge   on CBI   to   start   investigation   by   registering   a   case against   the   Board   and   start   interrogating   the President   of   the   Board   of   primary   education, Dr.Manik   Bhattacharya   as   also   the   Secretary   of   the said   Board.   Said   Manik   Bhattacharya   is   the petitioner   of   SLP(C)   Nos.   16325­16326   of   2022   and SLP(C)Nos.17649­17650   of   2022.   A   Special 4 | P a g e Investigation Team (SIT) has also been directed to be constituted   by   the   CBI   for   investigation.   The   SIT constitutes of senior officers from the CBI. (ii)  Invalidation of appointment of 269 candidates The   Single   Judge   has   also,   by   the   order   passed   on 13 th   June   2022,   invalidated   appointment   given   to 269 candidates (these candidates were not parties in either   of   the   two   writ   petitions).   58   of   these candidates   have   approached   us   with   SLP   (C)   No. 17412 of  2022. The  background  in  which  this order was   passed   is   that   after   publication   of   the   regular panel   of   successful   candidates,   a   second   or additional   panel   was   also   published.   In   this   panel, the 269 candidates were found to be successful. The stand   of   the   Board   on   this   count   is   that   there   was agitation   and   several   representations   by   several unsuccessful   candidates   over   the   selection   process. An   expert   committee   was   formed   which   found   the model answer in respect of one question actually had two   correct   answers.   Thus,   that   question   had   two 5 | P a g e correct   answers   but   the   model   answer   had   ignored the   other   one.   One   mark   was   recommended   to   be added   to   all   the   candidates   who   had   opted   for   the other   correct   answer.   The   Single   Judge   found   this exercise was done without any public announcement and   there   was   arbitrary   selection   of   candidates   for undue favour.  (iii)    Removal of the Board President The President of the Board, Dr. Manik Bhattacharya was   added   as   party   respondent   in   WPA   No.7907   of 2019.   He,   alongwith   Dr.   Ratna   Chakraborty   Bagchi (who   was   also   added   as   a   party   respondent)   was directed to cooperate with the CBI. The Single Judge in   the   order   passed   on   20 th   June   2022   opined   that the   President   of   the   Board   was   responsible   for misleading   the   Court   and   made   dishonest   and unscrupulous   attempt   in   producing   documents.   In the   same   order,   the   Court   removed   Dr.   Manik Bhattacharya from  the post of President of the West Bengal   Board   of   Primary   Education   forthwith   and 6 | P a g e directed   the   State   Government   to   appoint   any   other fit person as President of the Board. We are apprised in   course   of   hearing   that   the   State   Government   has already   removed   Dr.   Manik   Bhattacharya   from   the post   of   President   of   the   Board   and   engaged   another person as President thereof. Dr. Manik Bhattacharya was   also   directed   to   file   affidavits   of   assets   of moveable and immovable assets of his own as also in respect   of   his   wife,   son   and   daughter   in   law   by   two weeks.   It   has   transpired   in   course   of   hearing   that such   exercise   has   also   been   undertaken.   In   the judgment   under   appeal   certain   adverse   comments were also made against Dr. Manik Bhattacharya. 5. The   Division   Bench   in   the   operative   part   of   the judgment held:­ “A.   The   forensic   investigation   directed   to   be   handled by the CBI deserves no interference. B. The Hon’ble Single Bench shall be also entitled to monitor   investigation   into   any   money   trail,   as considered necessary. C. The   entire   investigation   shall   be   Court   Monitored and the Hon’ble Single Bench shall be entitled to call for periodic reports from the investigation agencies. 7 | P a g e D. The   disparaging   remarks   reflected   in   the   Orders impugned of Hon’ble Single Bench shall be treated to be   Obiter   at   this   stage.   However,   at   the   same   time, this   Court   does   not   interfere   with   the   Order   of   the Hon’ble   Singe   Bench   removing   MB   from   his   official position, in view of the  visible  proximity of MB to  the evidence so far before  the Court and  also  directed  to be marshalled in the forensic investigation. E. The   269   terminated   candidates   cannot   severally or jointly claim at this stage a prior right to be heard considering the prima facie materials which point to a fraudulent   exercise   connected   to   their   appointments and, without also completely eliminating their several or joint complicit roles, if any, in abetting the fraud.” (quoted verbatim from the paperbook) 6. Special   leave   petitions   have   been   filed   by,   apart   from Dr.   Manik   Bhattacharya,   the   State   of   West   Bengal   SLP (C)Nos.17208­17209   of  2022,   West  Bengal  Board  of   Primary Education   SLP   (C)   No.17044­17045,   SLP   (C)   No.17137   of 2022 and SLP (C) No.17756 of 2022. The Main case, so far as Dr.   Manik   Bhattacharya   is   concerned,   is   that   his   removal could   not   be   directed   by   the   Board   as   the   statutory provisions   under   Section   9   of   the   Primary   Education   Act, 1973   vests   such   power   with   the   State   Government   only.   It has   been   submitted   on   his   behalf   that   he   was   never   given adequate opportunity of hearing and in the writ petitions also there was no specific allegation against him in any event. It is argued that he ought to have been given opportunity of filing 8 | P a g e affidavit before such drastic action was ordered against him. It   has   also   been   asserted   that   drastic   orders   were   being passed directing the course of investigation and the nature of the   orders   passed   projected   him   as   guilty   before  he   had   the opportunity to give his side of the case. 7. All   the   petitioners   have   questioned   legality   of   the orders directing investigation to the CBI by the Single Judge. In this  regard  reliance  has  been  placed  on  the  case  of   State of   West   Bengal   and   Others   vs.   Sampat   Lal   and   Others [(1985) 1 SCC 317]:­ “15.   As already pointed out, power vests in the police authorities   of   the   State   Government   for   conducting investigation   into   allegations   relating   to   an   offence. However,   the   stand   taken   by   the   respondents   was that   the   State   Government   and   the   police   authorities had not acted properly and the investigation was not being conducted as required by law. As appears from the order of June 7, 1983, Borooah, J., directed notice to   issue   to   the   State   of   West   Bengal   as   also   to   the other authorities concerned to show cause against the issue of a writ. No hearing was, however, afforded to the State Government or its officers when direction to appoint the  Special Officer in whom power of  inquiry was to be vested, was made. There could be no scope for   appointing   a   Special   Officer   unless   the   statutory channel   of   investigation   was   found   not   to   have functioned properly. There was no basis at that stage to assume that the contents of the letters as also the facts stated in the columns of the newspaper had not been contradicted. It was the State Government or its officers   who   alone   could   have   authoritatively indicated   the   facts   showing   whether   the   allegations contained   in   the   letters   or   the   newspaper   reports 9 | P a g e were   true   and   if   so,   to   what   extent,   or   how   the investigation was being carried on and what stage it had   reached   so   as   to   enable   the   Court   to   come   to   a prima facie conclusion that the State Government and the   police   authorities   were   not   discharging   properly their statutory obligation to carry out an investigation. But   when   no   notice   was   given   to   the   State Government and no opportunity was offered to them, it   is   difficult   to   see   how   an   ex   parte   order   could   be made on such an assumption. When we say this, we do   not   wish   to   be   understood   to   say   that   in   no   case an   ex   parte   order   can   be   made   by   the   Court.   If   the facts   stated   in   the   letter   or   the   writ   petition   are credible   and   there   is   such   urgency   that   the   ends   of justice  might  be   defeated  by  not  making  an  ex   parte order or giving of notice without  ex parte order might lead   to   aggravation   of   oppression   or   exploitation   or removal   or   elimination   of   evidence,   the   Court   would certainly be justified in making an ex parte order. But here there were no such circumstances at all and the Court   could   have   very   well   issued   notice   to   the respondents  and  tried  to  find  out  whether  there  was any   necessity   for   directing   the   appointment   of   DIG, CBI to act as a Special Officer and requiring the police authorities of the State to extend  all possible help as may   be   required   by   him.   We   are   of   the   view   that Borooah,   J.,   should   have   issued   notice   to   the   State Government,   afforded   a   reasonable   opportunity   to   it and   its   officers   who   were   already   in   seisin   of   the investigation to make a report in regard  to the action taken   by   them   and   after   making   an   overall   judicial assessment of the situation, the need for appointing a Special Officer should have been considered. 16.   The   appointment   of   a   Special   Officer   with   a direction to  inquire  into  the  commission of  an  offence can   only   be   on   the   basis   that   there   has   not   been   a proper   investigation.   There   is   a   well­defined hierarchical  administrative   set­up  of   the   police  in  the State   of   West   Bengal   as   in   all   other   States   and   to have   created   a   new   channel   of   inquiry   or investigation   is   likely   to   create   an   impression   that everything   is  not  well   with  the  statutory  agency  and it   is   likely   to   cast   a   stigma   on   the   regular   police hierarchy.   We   are   inclined   to   agree   with   Mr Chatterjee   for   the   appellant   that   in   the   facts   and circumstances   of   the   case   and   keeping   the   nature   of 10 | P a g e the   order   made   in   view,   the   direction   to   appoint   a Special Officer with powers to inquire should not have been   made   until   the   appellants   had   been   given   a hearing and the Court had the papers of investigation laid   before   it   for   being   prima   facie   satisfied   that   the investigation had either not been proper or adequate.” On   the   same   point   the   cases   of   State   of   West   Bengal and   Others   vs.   Committee   for   Protection   of   Democratic Rights, West Bengal and Others  [(2010) 3 SCC 571],  Sakiri Vasu vs. State of Uttar Pradesh and Others   [(2008) 2 SCC 409]   and   Kunga   Nima   Lepcha   and   Others   vs.   State   of Sikkim and Others   [(2010) 4 SCC 513] were also referred to by the learned counsel for the parties.  8. As   regards   the   269   candidates,   whose   appointments were   directed   to   be   dismissed   by   the   Single   Judge,   the reasoning   of   the   Division   Bench   can   be   found   in   sub­ paragraph E of the operative part of the order which we have quoted  above.  It  has  been   pointed  out  by   the  learned senior counsel   representing   the   petitioners   that   they   were   serving for   a   period   beyond   four   years   and   that   they   had   acquired permanent   status   in   the   said   posts.   In   such   circumstances, it   is   their   submission   that   in   a   case   they   were   not   even 11 | P a g e impleaded   as   parties,   their   abrupt   termination   from   service would be unsustainable in law. 9. Petitioners have asked us to set aside investigation by the   CBI   and   also   revoke   all   termination   orders   as   according to   them,   these   orders   were   passed   without   adhering   to   the basic requirement of procedural fairness. 10. Mr.   S.   V.   Raju,   learned   Additional   Solicitor   General has appeared on behalf of the CBI and his submission is that his   clients   are   in   the   process   of   uncovering   a   recruitment scam of extraordinary dimension and the investigation at this stage   prima­facie   reveals   exchange   of   monetary considerations   for   giving   appointments.   He   has   argued   that investigation   ought   to   be   allowed   to   continue   under   these circumstances.   The   Learned   Senior   Counsel   appearing   for the   writ   petitioners/respondents   in   effect   echoes   the submission   of   the   CBI   to   sustain   their   main   plea   that   the investigation   ought   to   go   on.     Further   argument   of   the respondents/writ   petitioners   is   that   having   regard   to   the nature   of   the   allegations   and   the   materials   which   have surfaced during hearing of the case investigation ought not to 12 | P a g e be   scuttled   at   this   stage.   It   has   been   emphasised   that   the writ   petitioners   represent   all   the   genuine   candidates   and   all they want is recruitment in a fair and transparent manner. 11. In  our  opinion,  under  normal circumstances,  it would not be appropriate to straightaway direct CBI investigation in a   recruitment   related   controversy   unless,   of   course   the allegations   are   so   outrageous   and   the   perpetrators   of   the alleged   offences   are   so   powerful   that   investigation   by   the State   police   would   be   ineffectual.     The   reasons   given   by   the learned Single Judge in directing investigation by the CBI at such   an   early   stage   of   the   proceeding   may   fall   short   of   the standards laid down in  the  case of   Sampat   Lal   (supra). But considering   the   submission   of   learned   counsel   for   the   CBI and   the   fact   that   investigation   by   the   said   agency   has substantially   progressed,   we   do   not   want   to   stall   such investigation  at  this stage and  wait  to  see  if  the  State  Police can   carry   on   the   same   investigation   impartially.   We accordingly   decline   the   plea   of   the   petitioners   to   stay   that part   of   the   order   impugned,   by   which   continuance   of   the investigation   by   the   CBI   has   been   directed.   Before   we   issue 13 | P a g e further   order   in   this   matter,   we   direct   the   CBI   to   file   a comprehensive   report   as   regards   the   scope   and   nature   of illegalities   they   have   found   in   the   subject­recruitment process.  12. Now,   we   shall   turn  to   that   part   of   the  order   by   which cancellation   of   appointment   of   269   candidates   have   been effected.   Such   cancellation   has   not   been   interfered   with   by the   Division   Bench.   The   Division   Bench   has   referred   to prima­facie   materials   which   point   to   a   fraudulent   exercise connected   with   their   appointments.   On   behalf   of   the respondents,   however,   no   material   has   been   shown   to   us through   which   these   candidates’   direct   complicity   in   the process of appointment has been shown. What weighed with the   learned   Single   Judge   in   directing   their   termination   in   a case   where   they   were   not   even   the   parties   appears   to   be materials   that   was   revealed   in   response   to   orders   of   the Court. Such orders reflect some kind of investigative role that was   being   undertaken   by   the   Court   itself   in   obtaining documents from the recruiting bodies. It was also not a case the respective appointments were of very recent origin.  14 | P a g e 13. The   duty   of   the   judiciary   to   follow   the   principles   of natural   justice   has   been   highlighted   in   the   case   of   Divine Retreat   Centre   vs.   State   of   Kerala   and   Others   [(2008)   3 SCC 542]. In this case it has been held: “51.   The   order   directing   the   investigation   on   the basis   of   such   vague   and   indefinite   allegations undoubtedly   is   in   the   teeth   of   principles   of   natural justice.   It   was,   however,   submitted   that   the   accused gets   a   right   of   hearing   only   after   submission   of   the charge­sheet,   before   a   charge   is   framed   or   the accused   is   discharged   vide   Sections   227   and   228 and   239   and   240   CrPC.   The   appellant   is   not   an accused   and,   therefore,   it   was   not   entitled   for   any notice   from   the   High   Court   before   passing   of   the impugned  order. We  are  concerned with the  question as   to   whether   the   High   Court   could   have   passed   a judicial   order   directing   investigation   against   the appellant   and   its   activities   without   providing   an opportunity of being heard to it. The case on hand  is a case where the criminal law is directed to be set in motion   on   the   basis   of   the   allegations   made   in anonymous   petition   filed   in   the   High   Court.   No judicial   order   can   ever   be   passed   by   any   court without   providing   a   reasonable   opportunity   of being   heard   to   the   person   likely   to   be   affected by such order and particularly when such order results   in   drastic   consequences   of   affecting one's   own   reputation .   In   our   view,   the   impugned order   of   the   High   Court   directing   enquiry   and investigation   into   allegations   in   respect   of   which   not even   any   complaint/information   has   been   lodged with   the   police   is   violative   of   principles   of   natural justice. 52.   It   is   unnecessary   to   go   into   the   question   as   to whether   the   Divine   Retreat   Centre   is   not   a   “person” contemplated   by   Article   21   of   the   Constitution   and express   any   opinion   as   to   whether   any   right guaranteed by Article 21 of the Constitution has been infringed.   Suffice   it   to   note   that,   the   Director   of   the 15 | P a g e appellant   institution   has   been   impleaded   as   a   party respondent   in   the   criminal   petition   and   the   whole   of the allegations in the anonymous petition are levelled against   the   appellant   and   in   such   a   situation   it   was imperative  for the  High Court  to  put  the  appellant  on notice before passing the impugned order.” (emphasis supplied by us) 14. We are of the opinion that the part of the order of the Single   Judge   by   which   appointment   of   269   candidates   was terminated   ought   to   be   stayed   and   they   also   should   be impleaded   as   party   respondents   in   WPA   No.7907   of   2019. Upon giving them opportunity of filing affidavits and hearing them,   the   Single   Judge   shall   take   appropriate   decision, depending   on   the   defence   that   may   be   taken   by   those candidates in the writ petition.  In the event the Single Judge wants   the   investigation   as   regards   their   appointment   to   be conducted through the SIT already formed, he may direct so.  15. As regards the case of President of the Board, our view is that the order of his removal by the High Court was flawed, not   fulfilling   the   requirement   of   procedural   fairness   that   is necessary   to   direct   removal   of   a   person   from   a   public   post. We are not observing here that the High Court cannot at all direct   removal   of   any   person   from   a   public   post.   But 16 | P a g e ordinarily,   such   a   course   shall   be   taken   in   a   quo   warranto proceeding.   Even   otherwise,   if   the   Court   finds   that   an incumbent   has   appropriated   a   public   post   through   deceit, the Court may hold him to be unfit for the post.   But in this case   the   Court   found   him   to   be   responsible   for misinformation   and   for   relying   on   questionable   documents before   the   Court.   In   a   case   like   this   he   should   have   been given appropriate opportunity to defend his position. At best, the Court could have directed him, pending his explanation, not to discharge his duties in the said post. The order of the Single   Judge   directing   his   removal   accordingly   shall   stand stayed   alongwith   the   order   of   the   Division   Bench   which   has confirmed   the   removal   order.   But   at   this   stage,   we   are   not directing   his   reinstatement   in   the   same   post.   We   have   been apprised   that   the   State   Government   itself   has   already engaged   someone   as   the   President   of   the   Board.     We accordingly   hold   that   the   present   incumbent   to   the   post   of President,   West   Bengal   Board   of   Primary   Education   shall continue   to   remain   in   the   said   post   till   final   outcome   of   the writ petition  before the  Single Judge in  which  the  directions of   the   said   petitioner’s   removal   was   passed.   Dr.   Manik 17 | P a g e Bhattacharya   shall   be   entitled   to   file   affidavits   to   the   writ petitions   as   also   any   additional   affidavit   taken   out   in connection   with   the   said   writ   petitions   which   may   contain allegations against him. The Single Judge shall take decision on this aspect as also on other points which may be urged in the   pending   writ   petitions.   Till   then,   the   present   incumbent to   the   post   of   President,   West   Bengal   Board   of   Primary Education  shall   continue  to  discharge  his  duties  in  the  said post   and   Dr.   Manik   Bhattacharya’s   position   shall   be dependent upon the outcome of the pending writ petition.  16. We accordingly direct:­ (a). The   CBI   under   the   SIT   shall   continue   their investigation as directed by the Single Judge and file a comprehensive report before this Court within a period of four weeks as regards progress of the investigation. (b)   (i).   The   order   passed   directing   cancellation   of   269 candidates by the Single Judge on 13 th  June 2022 and the  part of  the order  of  the Division  Bench  confirming that order shall stand stayed and remain in abeyance. 18 | P a g e (ii).   Each   of   these   269   individuals   are   directed   to   be added as a party  respondent in WPA No.7907 of 2019 and   they   shall   be   entitled   to   file   affidavits   to   defend their appointment to the said posts, if so advised. The appointing   authority   will   proceed   in   accordance   with law   and   take   appropriate   decision   after   the   writ   court adjudicates   on   legality   of   their   appointments.   This direction   would   be   subject   to   any   order   that   may   be passed   by   this   Court   at   a   subsequent   stage   of   this proceeding. (c)   (i).   The   order   removing   Dr.   Manik   Bhattacharya passed   by   the   Single   Judge   and   confirmed   by   the Division Bench shall remain stayed until further order of   this   Court.   We,   however,   are   not   directing   his reinstatement   for   the   reason   already   disclosed   in earlier part of this order. Dr. Manik Bhattacharya shall be entitled to defend his position in the writ petition by filing   affidavits   in   respect   of   allegations   made   against him.  19 | P a g e (ii).   We   have   protected   Dr.   Manik   Bhattacharya   from any   coercive   steps   that   may   have   been   taken   by   the CBI   in   course   of   the   investigation.   There   was   no allegation   from   the   CBI   in   course   of   hearing   of   these matters   that   he   was   not   cooperating   with   the investigation.  It was, however, mentioned before us on 12 th   October   2022   that   he   has   been   arrested   by   the Enforcement   Directorate.   So   far   as   CBI   is   concerned, let   the   order   protecting   him   from   coercive   steps continue until further order. 17. Notice be issued in SLP(C)No.17756 of 2022. Let   counter­affidavits   be   filed   within   two   weeks. Rejoinder thereto within one week thereafter. List the matters after four weeks. ………………………………. J. (ANIRUDDHA BOSE) ………………………………. J. (VIKRAM NATH) NEW DELHI; 18 th  October 2022 20 | P a g e