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Judgment
B.S. Chauhan, J.—This Special Appeal has been filed against the judgment and order dated 27.8.2004, of the learned Judge of this Court dismissing the Writ Petition, filed by the petitioner-appellant for quashing the decision dated 10.12.2003 taken by the Examination Committee of the Allahabad University (hereinafter called the University) to cancel the M.A. IInd year (Philosophy) examination.
The facts and circumstances giving rise to this case are that the petitioner/appellant while appearing in the examination was checked by the flying squad of the University on 6th March, 2003 and a chit was recovered from his possession. His answer sheet was taken away and another answer sheet was issued to him. It was endorsed by the flying squad that the chit was recovered from the pocket of the appellant. Subsequently, on the basis of recovery of the unauthorised material, a show cause notice dated 6.3.2003, was issued to the appellant-petitioner as to why his examination be not cancelled for using unfair means. The appellant-petitioner submitted reply to the aforesaid show cause notice and after considering the same, the Examination Committee cancelled the examination of the year 2003, in terms of Ordinance 1.6-A1 of the Ordinance framed by the University relating to use of unfair means in the examinations.
Learned counsel for the appellant has submitted that there was no occasion for the Committee constituted by the University to cancel the examination of the appellant, even if it is admitted for the sake of argument that the chit was recovered from his possession, as the appellant had not used that nor taken any help therefrom, nor that was relevant to solve any of the questions given in the paper. The appellant had not been given proper opportunity of defence. Therefore, the said orders as well as the judgment of the learned Single Judge are liable to be averted/reversed.
On the contrary, Shri R.G. Tripathi, learned Counsel appearing for the respondents has submitted that it is enough to recover a material from the possession of the examinee as it is strictly prohibited to enter into examination hall with any such material. It is not at all relevant as to whether the chit etc. found from the possession of the examinee had been used by him or not, or whether it was of any help to him; mere taking such a material in the examination hall would amount to using unfair means. The appellant had been given a show cause notice and he had submitted the reply. Therefore, it is not permissible for the appellant to advance the argument of violation of the principles of natural justice.
We have considered the rival submissions made by the learned Counsel for the parties and perused the record.
In a case like instant, the Court can review only the "decision making procedure" and not the "decision" of the authority. The Court, not being a Court of Appeal, is not competent to substitute its own view on factual aspects of the case.
The Court can review to correct errors of law or fundamental procedural requirements which may lead to manifest injustice and can interfere with the impugned order in "exceptional circumstances". [Vide Union of India (UOI) Vs. Parma Nanda, ; State Bank of India and Others Vs. Samarendra Kishore Endow and Another, ; State of Punjab and others Vs. Surjit Singh Conductor, ; State of U.P. and others Vs. Ashok Kumar Singh and anothers, ; State of U.P. and others Vs. Nand Kishore Shukla and another, ; Transport Commissioner, Madras-5 Vs. A. Radha Krishna Moorthy, ; Rae Bareli Kshetriya Gramin Bank Vs. Bhola Nath Singh and other, ; State of Punjab and others Vs. Bakhshish Singh, ; Yoginath D. Bagde Vs. State of Maharashtra and Another, ; Union of India and Others Vs. Lt. Gen. Rajendra Singh Kadyan and Another, ; Food Corporation of India, Hyderabad and Ors. v. A. Prahalada Rao and Anr. AIR 2001 SC 51; Kumaon Mandal Vikas Nigam Ltd. v. Girja Shankar Pant and Ors. AIR 2001 SC 24; N.R. Nair and Ors. v. Union of India and Ors., AIR 2001 SC 2337 ; Union of India and Another Vs. Ashutosh Kumar Srivastava and Another, ; and Lalit Popli Vs. Canara Bank and Others, ].
In State of Tamil Nadu and another Vs. S. Subramaniam, , the Apex Court held that as the High Court has power of judicial review of the administrative action on complaint relating to service conditions of the employee, it is within the exclusive domain of the disciplinary authority to consider the evidence on record and to record findings whether the charge stood proved or not. It is equally settled law that technical rules of evidence have no application in the disciplinary proceedings and the authority is to consider the material on record. In judicial review, the Court "has no power to trench on the jurisdiction to appreciate the evidence and to arrive at its own conclusion. Judicial review is not an appeal from a decision but a review of the manner in which the decision is made. It is meant to ensure that the delinquent receives fair treatment necessarily correct in the view of the Court or the Tribunal. When the conclusion reaches by the authority is based on evidence, the Court or the Tribunal is devoid of power to re-appreciate the evidence and would come to its own conclusion on the proved charges. The only consideration the Court/Tribunal has, in its judicial review, is to consider whether the conclusion is based on the evidence on record that support the finding, or whether the conclusion is based on no evidence."
In General Court Martial and Others Vs. Col. Aniltej Singh Dhaliwal, , the Hon''ble Supreme Court has held that the High Court, in its limited power of exercise of judicial review, may interfere by appreciating the evidence only if there is an omission on the part of the Inquiry Officer or the Disciplinary Authority to consider the relevant evidence.
Similarly, in Rajinder Kumar Kindra Vs. Delhi Administration through Secretary (Labour) and Others, the Court observed as under :
"It is equally well settled that where a quasi-judicial Tribunal or arbitrator records findings based on no legal evidence and the findings are either his ipse dixit or based on conjectures and surmises, the enquiry suffers from the additional infirmity of non-application of mind and stands vitiated...Viewed from either angle, the conclusion of the Inquiry officer....are wholly perverse and hence unsustainable. The High Court, in our opinion, was clearly in error in declining to examine the contention that the findings were perverse on the short, specious and wholly untenable ground that the matter depends on appraisal of evidence. Between appraisal of evidence and total lack of evidence, there is an appreciable difference which could never be lost sight of and the High Court ought not to have short-circuited the writ petition."
In R.S. Saini Vs. State of Punjab and Others, , the Apex Court noted as follows :
"We will have to bear in mind the rule that the Court while exercising writ jurisdiction will not reverse a finding of the inquiring authority on the ground that the evidence adduced before it is insufficient. If there is some evidence to reasonably support the conclusion of the inquiring authority, it is not the function of the Court to review the evidence and to arrive at its own independent finding. The inquiring authority is the sole judge of the fact so long as there is some legal evidence to substantiate the finding and the adequacy or reliability of the evidence is not a matter which can be permitted to be canvassed before the Court in writ proceedings."
In People''s Union for Civil Liberties and Another Vs. Union of India (UOI) and Others, , while dealing with a similar case, the Hon''ble Apex Court held as under :
"The Court will not normally exercise its power of judicial review in such matters unless it is found that formation of belief by the statutory authority suffers from mala fides, dishonesty or corrupt practice. The order can be set aside if it is held to be beyond the limits for which the power has been conferred upon the authorities by the legislature or is based on grounds extraneous to the legislation or if there are no grounds at all for passing it or if the grounds are such that no one can reasonably arrive at the opinion or satisfaction required thereunder."
Similarly, in Directorate of Education and Others Vs. Educomp Datamatics Ltd. and Others, , the Hon''ble Supreme Court while dealing with acceptance of tender held as under :
"The Courts would not interfere with the terms of the tender notice unless it was shown to be either arbitrary or discriminatory or actuated by malice. While exercising the power of judicial review of the terms of the tender notice the Court cannot say that the terms of the earlier tender notice would serve the purpose sought to be achieved better than the terms of tender notice under consideration and order change in them, unless it is of the opinion, that the terms were either arbitrary or discriminatory or actuated by malice."
A Full Bench of this Court in Ghazanfar Rashid Vs. Secretary, Board of High School and Intermediate Education, U.P., Allahabad and Others, , held as under :
"The question then arises as to whether it is open to this Court under Article 226 of the Constitution to accept the petitioner''s explanation or to interfere with the decision of the Examinations Committee on appraisal of petitioner''s answers. Before we answer this question it is necessary to consider the scope of High Court''s jurisdiction in a writ of certiorari. Under Article 226 the High Court has jurisdiction to quash the decision or orders of subordinate tribunals and statutory authorities entrusted with the quasi-judicial functions, if they act without jurisdiction or in excess of it, or in violation of the principles of natural justice or if there is an error apparent on the face of the record. The jurisdiction of the High Court under Article 226 of the Constitution is wide, yet it is limited as it exercises supervisory jurisdiction over the subordinate tribunals or Courts and it does not exercise appellate jurisdiction. In Veerappa Pillai Vs. Raman and Raman Ltd. and Others, , the Supreme Court while considering the scope of Article 226 observed thus :
"However extensive the jurisdiction may be, it is not so wide or large as to enable the High Court to convert itself into a Court of appeal and examine for itself the correctness of the decisions impugned and decide what is the proper view to be taken or the order to be made".
In Hari Vishnu Kamath Vs. Syed Ahmad Ishaque and Others, , a Constitution Bench of the Supreme Court laid down principles with regard to the character and scope of the writ of certiorari and the conditions under which it can be issued. The Supreme Court held :
"The Court issuing a writ of certiorari acts in exercise of supervisory and not appellate jurisdiction. One consequence of this is that the Court will not review findings of fact reached by the inferior Court or Tribunal even if they be erroneous. This is on the principle that a Court which has jurisdiction over a subject-matter has jurisdiction to decide wrong as well as right and when the legislature does not choose to confer a right of appeal against the decision it would be defeating its purpose and policy if a superior Court were to rehear the case on the evidence and substitute its own findings in certiorari."
While dealing with the said case, reliance had been placed on the judgments of the Supreme Court in Nagendra Nath Bora and Another Vs. The Commissioner of Hills Division and Appeals, Assam and Others, ; Kaushalya Devi and Others Vs. Bachittar Singh and Others, ; Major U.R. Bhatt Vs. Union of India (UOI), ; State of Andhra Pradesh Vs. Sree Rama Rao, ; Syed Yakoob Vs. K.S. Radhakrishnan and Others, ; State of Madras v. G. Sundaram AIR 1965 SC 11O3; and State of Andhra Pradesh and Others Vs. Chitra Venkata Rao, .
It is well settled that the Court while exercising jurisdiction under Article 226 of the Constitution cannot sit in appeal over the findings recorded by Tribunals or quasi-judicial authorities and it has no Jurisdiction to interfere with the order of quasi-judicial authorities if the decision is arrived at bona fide after complying with the principles of natural justice. The High Court cannot substitute its own opinion for that of the subordinate Tribunal or authority and it has no jurisdiction to interfere with the findings on appraisal of evidence even if those findings may be erroneous. No doubt, if the order is based on no evidence or if the findings are arbitrary and so capricious that no reasonable person could come to those findings, the order would be quashed. But the High Court cannot interfere with the order on the ground of probative value of evidence or adequacy or inadequacy of evidence. To judge the credibility of a particular piece of evidence is the function of an appellate Court and that function does not fall within the supervisory jurisdiction of High Court under Article 226 of the Constitution.
In Guru Nanak Dev University and another Vs. Harjinder Singh and another, , the Hon''ble Apex Court has held that if the Expert Committee after examining the entire record and comparing the answer books, comes to the conclusion of using unfair means, the order of punishment cannot be challenged on technical grounds, i.e. non-recovery of incriminating material etc. and, as such, submission/ contentions are of no consequence.
The Examinations Committee constituted under the statutory provisions and are entrusted with the duty of maintaining purity of examinations and if an examinee is found to have used unfair means at the examination, it is the duty of the Examinations Committee to take action against the erring examinee to maintain the educational standard. Direct evidence is available in some cases but in a large number of cases direct evidence is not available. In that situation, the Examinations Committee has to take a decision on circumstantial evidence which may include the answer given by the examinee, the report of the Superintendent of the centre, the invigilator and the report of the experts and other attending circumstances. The Screening Committee constituted by the Examinations Committee consists of experts in the subject concerned who are possessed of technical knowledge and experience, and they are in a better position to consider the explanation of an examinee and to decide the question of use of unfair means. It is not open to the High Court to interfere with the decision taken by the expert committee merely because the High Court may take a different view on re-assessment of those circumstances. It is the function of the appellate Court to take a different view of the evidence and not the function of a supervisory Court to interfere with the order on the ground of a different possible view. While it is open to the High Court to interfere with the order of a quasi-judicial authority if it is not supported by any evidence or if the order is passed in contravention of the statutory provisions of law, or in violation of the principles of natural justice, but the Court has no jurisdiction to interfere with the order merely on the ground that the evidence available on the record is insufficient or inadequate or on the ground that a different view could possibly be taken on the evidence available on the record. The Examinations Committee has jurisdiction to take decision in the matter of use of unfair means not only on direct evidence but also on probabilities and circumstantial evidence. There Is no scope for Importing the principles of criminal trial while considering the probative value of probabilities and circumstantial evidence. The quasi-judicial authorities including the Examination Committee are not bound by technical rules of evidence and procedure as are applicable to Courts.
In Central Board of Secondary Education Vs. Vineeta Mahajan (Ms) and Another, , the Hon''ble Supreme Court while considering similar provisions of the Ordinances held as follows :
"The sine qua non, for the misconduct under the rule, is the recovery of the incriminating material from the possession of the candidate. Once the candidate is found to be in possession of papers relevant to the examination, the requirement of the rule is satisfied and there is no escape from the conclusion that the candidate has used unfair means at the examination. The Rule does not make any distinction between bona fide or mala fide possession of the incriminating material. The High Court reasoning, that the candidate having not used the material--inspite of the opportunity available to her--the possession alone would not attract the provisions of the Rule, in our view, is not borne out from the plain language of the Rule. May be, because of strict vigilance in the examination hall the candidate was not in a position to take out the papers from the pencil box and use the same. The very fact that she took the papers relevant to the examination in the paper concerned and was found to be in possession of the same by the invigilator in the examination hall is sufficient to prove the charge of using unfair means by her in the examination under the Rule."
Therefore, in a given case, it is totally irrelevant to consider as to whether the examinee had taken any help from the chit etc. recovered from him as its mere recovery is enough to bring home the charges of using unfair means.
A Constitution Bench of the Supreme Court in The University of Mysore and Another Vs. C.D. Govinda Rao and Another, , has held that in academic matters, where the decision under challenge has been taken by the Committee of Expert "normally the Courts should be slow to interfere with the opinion expressed by the experts" unless there are allegations of mala fide against any of the members of the Expert Committee. The Court further observed as under :
".....It would normally be wise and safe for the Courts to leave the decisions of academic matters to experts who are more familiar with the problems they face than Courts..."
A similar view has been reiterated by the Hon''ble Supreme Court in State of Bihar and Others Vs. Dr. Asis Kumar Mukherjee and Others, ; Dr. M.C. Gupta and Others Vs. Dr. Arun Kumar Gupta and Others, ; Dr. J.P. Kulshreshtha and Others Vs. Chancellor, Allahabad University and Others, ; Rajendra Prasad Mathur Ors. Vs. Karnataka University and Another, ; Dalpat Abasaheb Solunke and Others Vs. Dr. B.S. Mahajan and Others, ; Dr. Uma Kant Vs. Dr. Bhika Lal Jain and others, ; Bhushan Uttam Khare Vs. The Dean, B.J. Medical College and others, ; The Chancellor and Another Vs. Dr Bijayananda Kar and Others, ; Central Areca Nut and Cocoa Marketing and Processing Cooperative Ltd. Vs. State of Karnataka and Others, ; Chairman, J and K State Board of Education Vs. Feyaz Ahmed Malik and Others, ; and The Dental Council of India Vs. Subharti K.K.B. Charitable Trust and Another, ; wherein the Hon''ble Supreme Court held that in the matter of academic courses, the Court should not disturb the decision taken by the educational institution unless there are compelling circumstances and sufficient material warranting the interference.
In Board of Technical Education, U.P. and others Vs. Dhanwantri Kumar and others, , it has been held by the Hon''ble Supreme Court that in such matters, the show cause notice should be clear and not vague and imprecise, as it may not be possible for the student to defend himself effectively in the course of an inquiry, and if the notice itself remains vague, the order of punishment may stand vitiated.
Similarly, in Keshav Prasad Yadav Vs. Banaras Hindu University and others, , this Court held that it is mandatory that the material, on the basis of which the University wants to proceed against the students, alleged to have used unfair means, has to be supplied to him. If the supporting material has not been supplied, the inquiry becomes bad.
In the instant case, there is no such argument on behalf of the appellant that the charges were vague, or he was not aware as what was the allegation against him and what he had to defend. Thus, the aforesaid judgments have no application in the instant case.
Even otherwise, raising technical questions of non-compliance of the principles of natural justice are of no use unless a party satisfies the Court that the cause of the petitioner has been materially prejudiced for want of such compliance as the validity of the order has to be tested on the touchstone of prejudice. [Vide Managing Director, ECIL, Hyderabad, Vs. Karunakar, etc. etc., ; State Bank of Patiala and others Vs. S.K. Sharma, ; Major G.S. Sodhi Vs. Union of India (UOI), ; and S.K. Singh Vs. Central Bank of India and Others, ].
In view of the above, the law can be summarised that the scope of judicial review in such matters is very limited. The writ Court cannot sit in appeal against the decision of an expert body, which is very well acquainted with its job and deal with such cases every day. The learned Single Judge has dealt with all the issues giving reasons while deciding the writ petition. As no allegations of mala fide have been alleged against any officer of the University nor any officer of the University has been impleaded by name, we see no cogent reason to interfere with the impugned judgment and order of the learned Single Judge dated 27.8.2004
The Special Appeal lacks merit and is, accordingly, dismissed.