Chandrakant Damodar Kale Vs. Nagpur Improvement Trust and anr. - Court Judgment

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[a] maharashtra civil service (discipline and appeal) rules, 1979 - rule 8 - enquiry officer appointed before service of charge - whether enquiry would be violated - no- in sub-rule (1) it is stated that rule to be followed as far as may be - mere breach of rule would not vitiate enquiry if there is no breach of principle of natural justice - rule of a procedural character.;[b] rule 16 - examination of witness not referred in charge - enquiry not vitiated unless prejudiced. ;[c] rule 8(20) - failure to question delinquent on the circumstances arising from evidence - does not vitiate enquiry. ;[d] rule 9 - natural justice - enquiry officers report - not furnished before show cause notice - but supplied on request - delinquent thereafter filed his say - punishment inflicted on 11 .7.85 - requirement of furnishing copy of enquiry report made effective from 20.11.90 - punishment inflicted only after consideration of reply - no violation of natural justice. ;[e] rule 8(25) - enquiry officer recommend action to be taken for misconduct - no specific punishment recommended - held - recommendation of enquiry officer not binding - disciplinary authority to apply its mind and inflict punishment - omission to recommend specific punishment would not vitiate enquiry. ;[f] rules 5 - discharge from service - show cause notice to delinquent after consideration of enquiry officers report - punishment of compulsory retirement proposed - punishment of discharge not prescribed in rule 5 imposed - discharge from service for misconduct amounts to removal from service is higher punishment than that of compulsory retirement. higher punishment cannot be inflicted than that proposed. ;[g] 4(1)(a) - delinquent was put under suspension - no appeal against it - suspension not modified - subsequently punishment of compulsory retirement decided having effect of termination of service - suspension merges with the order of compulsory retirement. - - 4 that you failed to furnish complete details about the movable and immovable properties belonging to you and your family members after you were directed to do so by under letter no. it is also his contention that the very charge itself is bad in law as it was not validly framed, in the sense that the charge was framed by the enquiry officer and not by the disciplinary authority. once it is identified even as per the wording of the said rule, they have to be followed as far as it is possible, one cannot urge that mere breach of the rule by itself would vitiate the enquiry, provided it is demonstrated that there was no failure of the natural justice and the government servant was not denied the protection under art. in short unless it is seen that failure to adhere to the procedure has caused prejudice to the government servant, the enquiry cannot be affected. 8. no prejudice or failure of justice is there as the petitioner had fair and reasonable opportunity to reply the charge, contest and participate in the enquiry. this is particularly so as the petitioner was not successful in demonstrating that any prejudice was caused thereby and has resulted in failure of justice on account of the alleged lapse, if any, on the part of the respondent. it is well settled that in a proceeding under art. even in the criminal proceedings mere failure to put a circumstance against the accused appearing in the evidence to him by itself need not vitiate the trial. state, 1973 scc (criminal) 1033, also the effect of failure to put question regarding a circumstance appearing in the evidence against the accused was considered and the court observed at page 1046 as below :however, where such an omission has occurred it does not ipso facto vitiate the proceedings and prejudice occasioned by such defect must be established by the accused. it is also open to the appellate court to call upon the counsel for the accused to show what explanation the accused has as regards the circumstances established against him but not put to him and if the accused is unable to offer the appellate court any plausible or reasonable explanation of such circumstances, the court may assume that no acceptable answer exists and that even if the accused had been questioned at proper time in the trial court he would not have been able to furnish any good ground to get out of the circumstances on which the trial court had relied for its conviction'.we have referred to these decisions to demonstrate even where the provisions of criminal procedure code apply, mere failure to question the accused on the circumstance arising from the evidence need not vitiate the trial. 13. the learned counsel for the petitioner maintained that there is failure of natural justice, since before the service of the show cause notice on accepting the enquiry report, copy of the enquiry report was not furnished to him. in md ecil's case, (1994)illj162sc referred to early the supreme court held, no order of punishment passed before that date would be challengeable on the ground that there was a failure to furnish inquiry report to the delinquent employee. if after hearing the parties, the court/tribunal comes to the conclusion that the non-supply of the report would have made no difference to the ultimate findings and the punishment given, the court/tribunal should not interfere with the order of the punishment'.here as already noticed copy of the enuiry report was furnished to the petitioner by the authority itself and he had filed his reply to the proposed punishment as well as the findings of the disciplinary officer. 14. yet one other submission made by the learned counsel for the petitioner is that the enquiry officer since has failed to recommend the punishment has not followed rule 8(25) of the mcs (discipline and appeal) rules which also vitiates the report. this submission as such is not correct because though any specific punishment was not recommended by the enquiry officer, in para 7, annexure t, the enquiry officer had recommended that action is to be taken for the misconduct found to have been proved. in view of the fact that there was consideration of the evidence adduced by the petitioner, the petitioner cannot successfully maintain that the report is bad, unless he is able to point out that the conclusion reached by such consideration of evidence is perverse which resulted in miscarriage of justice. union of india, (1996)illj1231sc ,wherein the supreme court held if the punishment imposed by the disciplinary authority shocks the conscience of the high court/tribunal, it would appropriately mould the relief either directing the disciplinary authority to reconsider the penalty imposed or to shorten the penalty, alternatively it may itself in exceptional and rare cases impose appropriate punishment with cogent reasons. thus in exceptional cases where the punishment is harsh the high court can mould the relief and impose appropriate punishment. evidently, this is a very belated argument, particularly, when this matter of suspension was brought to the notice of the first respondent, it did not disapprove the steps taken by the chairman.l. manoharan, j.1. the petitioner who was assistant engineer with the 1st respondent nagpur improvement trust (for short 'the trust'), challenges his order of suspension dated 2.5.1983 and the order of discharge dated 15.7.1985 (annexures 'a and w'). 2. the petitioner was initially appointed in the 1st respondent trust as an assistant overseer and later he earned promotion as the assistant engineer and while he was working in that capacity as the assistant engineer, pending enquiry into the certain allegations against him, kept him under suspension by annexure 'a'. later, he was served with annexure 'g' the charge-sheet which contained four charges against him : charge no. 1 'while serving under the nagpur improvement trust, nagpur as assistant engineer, you were engaged in the business run by m/s. m. k. associates and m/s. shree constructions and doing business, this act of your is in contravention of rule 16 of the maharashtra civil services (conduct) rules, 1979 and constitutes a misconduct on your part. charge no. 2 that a board sanctioned advance of rs. 15,000/- to you for purchase of motor car for the use in discharging official duties, vide board resolution dated 25th february, 1980. accordingly, you purchased an ambassador car bearing mhx 7037 by obtaining loan from the nagpur improvement trust. you have drawn car maintenance allowance for the aforesaid car for the period from 11th june, 1980 to 30th september, 1981 by signing a certificate that the car was used for trust work. however, the car was not used by you during this period, but it was allowed to be used by shri moreshwar waman kolhatkar exclusively for his business purposes. thus you have cheated the nagpur improvement trust by drawing maintenance allowance at the rate of rs. 240/- p.m. w.e.f. 11.6.1980 to 30.6.1981 and rs. 350/- from 1.7.1981 to 30.9.1981. charge no. 3 that the aforesaid car no. mhx 7037 was pledged by you with the nagpur improvement trust. that you executed an agreement dated 11th june, 1980 with the chairman, nagpur improvement trust, nagpur and gave an undertaking that so long as the loan taken by you for the purchase of motor vehicle remains payable to the chairman you will not sell or pledge the vehicle to any one. however, in contravention of this agreement and the bombay financial rules, 1959, under which loans have been granted to you, you sold the car without reimbursement of full loan and permission of the chairman nagpur improvement trust. charge no. 4 that you failed to furnish complete details about the movable and immovable properties belonging to you and your family members after you were directed to do so by under letter no. account 5891 dt. 21st february, 1983 and no. account/6108 dated 3rd march, 1983 by the nagpur improvement trust. thus you committed a breach of rule 19 of the maharashtra civil services (conduct) rules, 1979.' on serving the charge on the petitioner he filed his written statement. the enquiry officer after examining witnesses and perusing documents found him guilty of three charges i.e. charges nos. 1 to 3. charge no. 4 was said to be not proved. the report of the enquiry officer is at annexure 't'. later the report of the enquiry officer was accepted by the disciplinary authority and it directed to issue show cause notice to him proposing the punishment of compulsory retirement vide annexure 's'. to this show cause notice the petitioner filed reply, and ultimately he was served with the final order annexure 'w', which purported to 'discharge' him from the service. annexure 'w' directed to discharge the petitioner from the service with immediate effect and also further ordered that the period of suspension from 2.5.1983 till the date of annexure 'w' would not be treated as duty period, but, he would be entitled to receive subsistence allowance as per the rules. 3. learned counsel for the petitioner shri kothari argued that the very suspension of the petitioner itself is invalid as according to the learned counsel the suspension was not by the appointing authority, the 1st respondent. according to the learned counsel the suspension is also vitiated as there was no preliminary enquiry and no explanation was called for from him before the suspension. the learned counsel then maintained that the very appointment of the enquiry officer is opposed to rule 8 of the maharashtra civil service (discipline and appeal) rules, 1979 (for short 'the mcs (discipline and appeal) rules'. it is pointed out by the learned counsel that as per rule 8 of the said rules, enquiry officer can be appointed only after service of the charge and filing of the written statement by the delinquent officer, whereas, the enquiry officer was appointed even before serving the charge. it is also his contention that the very charge itself is bad in law as it was not validly framed, in the sense that the charge was framed by the enquiry officer and not by the disciplinary authority. it was also urged that there was no acceptable evidence in support of the charges nos. 1 to 3 as according to the learned counsel the evidence on record was not capable of leading to the conclusion that the petitioner is guilty of any of the charges found to have been proved by the enquiry officer. it was strenuously contended by the learned counsel shri kothari that, inasmuch as the copy of the enquiry report was not furnished to him before the show cause notice, there is breach of natural justice and, therefore, the very enquiry is vitiated. the learned counsel maintained that in as much as the enquiry officer did not recommend punishment as is required under rule 8, sub-rule 25 of the said rules, the very enquiry report is infirm. according to the learned counsel witness who was not shown or cited as the witnesses in the charge was examined, and the finding of the guilt by the enquiry officer since is based on the evidence of said witness also the same is vitiated. the enquiry officer, according to the learned counsel also did not adhere to sub-rule 20 of rule 8 of the mcs (discipline and appeal) rules as circumstances arising from the evidence concerning charge no. 2 was not put to the petitioner. the learned counsel also submitted that since the disciplinary authority did not give reasons for accepting the report of the enquiry officer, the enquiry is vitiated on that ground also. as regards the above submission it has to be stated, it is not the law, even when the disciplinary authority accepts the findings of the enquiry officer it should give reasons. if on the other hand disciplinary authority differs with the findings of the enquiry officer it has to give reasons for the same. see tara chand khatri v. municipal corporation of delhi, : (1977)illj331sc . lastly, the learned counsel urged that there is no punishment as 'discharge' in rule 5 of the mcs rules either as minor penalty or major penalty. the learned counsel pointed out, since the show cause notice at annexure 's' proposed only the punishment of compulsory retirement, the disciplinary authority could not have imposed any punishment higher than the said proposed punishment. therefore, according to the learned counsel the very order imposing the punishment of 'discharge' cannot be sustained under the law. yet, another point urged by the learned counsel shri kothari is that the chairman of the trust is annexure 'w' communicated to the petitioner that he is discharged from the service with immediate effect whereas the resolution of the board of the trust dated 16th may, 1985 was only to award the punishment of compulsory retirement. according to the learned counsel annexure 'w' is also inconsistent with the resolution dated 16th may, 1985, in as much as the chairman purported to deal with the period of suspension which does not form part of the resolution of the 1st respondent dated 16th may, 1985. 4. on behalf of the respondent it was pointed out, since the board the trustees in the resolution dated 2-1-1984 took note of the charges levelled against the petitioner and his suspension from the trust services and required the chairman to appoint suitable officer to conduct the departmental enquiry, the petitioner could not contend, the suspension or framing of the charge was not competent. on the basis of the resolution it was urged on behalf of the respondents that though it was the chairman who suspended the petitioner, since the matter was placed before the board and the board had accepted the said action taken by the chairman and further directed the chairman to appoint the suitable officer to conduct the departmental enquiry, the suspension is not vitiated. but shri kothari maintained that, in as much as the suspension is not by the appointing authority, the order of the suspension itself is illegal. in support of the said submission the learned counsel relied on rule 4 sub-rule (1) of the mcs (discipline and appeal) rules which enjoins, the appointing authority or any authority to which the appointing authority is subordinate or the disciplinary authority or any other authority empowered in the behalf by the governor by general or special order may place a government servant under suspension. incidentally, it has to be observed that it is agreed position that the board of the trust has adopted the aforesaid mcs rules and made them applicable to the employees of the trust. it is enough in this context to observe that since the appointing authority i.e., the board of the trust by the aforesaid resolution accepted and ratified the action of the chairman in the context, it is not possible to agree with the learned counsel shri kothari when he urged that the very suspension is without authority. 5. the other contention that no explanation is called for before such suspension cannot survive as the suspension is not even a quasi judicial act; suspension pending enquiry, under law, is merely an administrative action and not quasi judicial action and, therefore, it is not necessary to make any enquiry into the charges of misconduct or obtain explanation from the government servant before making such order. all that is necessary is, if the concerned authority on getting complaint thinks that the alleged charge does not appear to be groundless and same requires enquiry the delinquent officer can be kept under suspension pending enquiry. in view of the same it cannot be successfully maintained, since no explanation was called for before the suspension the order of the suspension is vitiated. it need, in this connection, be noted that as per rule 4(1)(a) of the mcs (discipline and appeal) rules where a disciplinary proceeding against an employee is completed or is pending he can be kept under suspension. as is already noted, since the suspension is not even a quasi judicial action, calling of the explanation or conducting preliminary enquiry as such is not necessary and principles of natural justice will not apply to such an order of suspension. 6. in this connection it is necessary to note that as a matter of fact explanation was called for can be seen from the statement of facts annexed to the charge served on the petitioner. in paragraph 7 and para 8 of statement of facts at annexure 8, mention is made to the effect that the explanation of the petitioner was called for by the letter dated 16th april, 1983. therefore, contention that no explanation at all was called for before the petitioner was kept under suspension does not appear to be correct. the statement of facts also show that he had submitted explanation before he was kept under the suspension. 7. as regards the argument concerning the appointment of the enquiry officer the said question has to be considered on the basis whether rule 8 of the mcs (discipline and appeal) rules is mandatory or directory. it was urged by the learned counsel shri kothari relying on the decision in state of uttar pradesh v. babu ram upadhya, : 1961crilj773 , that the rules are mandatory. in that decision the question as to para 486 r.i. of the u.p. police regulation is mandatory or directly arose for consideration. the point that arose for determination was whether the launching of domestic enquiry against the police personnel before investigation is valid. adverting to the said rules the supreme court by majority held that the enquiry is vitiated because the rule which was mandatory was not adhered to. it is observed therein that statutory rule cannot be equated with administrative direction. as to whether the particular rule is substantive or procedural has to be judged with due regard to the context in which the concerned rule appears and also the wording thereof. it is true sub-rule (5) of rule 8 shows that on receipt of the written statement the disciplinary authority may itself enquire into the charge or appoint an enquiry officer. that sub-rule thus implies the stage at which the enquiry officer could be appointed viz., after the receipt of the written statement. here the enquiry officer was appointed before that whether that by itself would violate the enquiry is the question. for that sub-rule (1) is of importance. the very character of the rule declares itself to be 'procedure for imposing major penalties' and in sub-rule (1) thereof it is stated that, these rules 'as far as may be' followed. but one has to bear in mind that these rules are framed under art. 309 of the constitution. once it is identified even as per the wording of the said rule, they have to be followed as far as it is possible, one cannot urge that mere breach of the rule by itself would vitiate the enquiry, provided it is demonstrated that there was no failure of the natural justice and the government servant was not denied the protection under art. 311(2) of the constitution. in short unless it is seen that failure to adhere to the procedure has caused prejudice to the government servant, the enquiry cannot be affected. the aforesaid nature of the rule is an indication to show that the provision is not of a substantive nature and is procedural in character. then one cannot say that every breach of the rule unattended by prejudice would necessarily amount to denial of reasonable opportunity. in the decision state bank of patiala v. s. k. sharma, 1996 2 clr 29, the supreme court held mere breach of rule by itself cannot vitiate the enquiry to be set aside without adverting whether the provision violated is substantive in nature or whether procedural in character and proceeded to hold that in the case of procedural provision which is not of a mandatory character the alleged violation has to be examined from the stand point of substantial compliance and unless such violation has resulted in prejudice to the delinquent employee the enquiry cannot be set aside. 8. no prejudice or failure of justice is there as the petitioner had fair and reasonable opportunity to reply the charge, contest and participate in the enquiry. though the charge was signed by the enquiry officer, before service of the charge on the delinquent officer, it was approved by the 1st respondent. the resolution at page 378 would indicate that the board of the trust took note of the charges levelled against the petitioner and it directed the chairman to appoint the enquiry officer. paragraph 13 of the return would indicate that though the charge was prepared by a subordinate officer, the same was approved by the chairman and was sent to the enquiry officer; and as had already seen it was paced before the board of trustees before it was served on the petitioner. it is not possible to agree that the trust was not involved in framing the charge and causing the same to be served on the petitioner. the said argument in the circumstances is not possible to be accepted. this is particularly so as the petitioner was not successful in demonstrating that any prejudice was caused thereby and has resulted in failure of justice on account of the alleged lapse, if any, on the part of the respondent. 9. another point urged by the learned counsel for the petitioner shri kothari is that all the documents relied on by the enquiry officer were not supplied to him. along with the return the respondents have produced acknowledgement signed by the petitioner which enumerates the copies of the documents that he has received. it was urged by the learned counsel that the report of the police and the diary of one kolhatkar who is alleged to have been the associate of the petitioner were relied on. admittedly, shri kolhatkar was not alive at the time of the enquiry, and as regards the police report it has to be observed that the provisions of the evidence act are not applicable in the disciplinary proceedings. the decision reported in state of haryana v. rattan singh, : (1982)illj46sc , held that, in a domestic enquiry strict and sophisticated rules of evidence under the evidence act may not apply and all material which are logically probative for a prudent mind are permissible, and added there is no allergy to hearsay evidence provided it has reasonable nexus and credibility. therefore, on the simple ground that the record of the police was relied on without examining the concerned officer may not by itself be a ground to reject the conclusions reached by the enquiry officer. it is not the case of the petitioner that the conclusion reached by the enquiry officer was solely on the basis of the said police record. in this connection it has to be observed that the police record was referred to while considering the allegation that the car at the relevant time was used by shri kolhatkar and the inquiry report states that the petitioner himself has admitted before the enquiry officer that he has entrusted the car with shri kolhatkar. in the context of the aforesaid facts and circumstances, it was not necessary to examine the police officer. evidently, therefore, it cannot be said that the finding as regards the said aspect was recorded solely on the basis of the said police report. 10. the first charge is that the petitioner had engaged himself in the business run by m/s. m. k. associates and m/s. shree constructions and thus had violated rule 16 of the maharashtra civil service (conduct) rules, 1979. in support of the said item of charge the enquiry officer had relied on the evidence of one smt. tarabai shrikhande, pradeep shrikhande and shri v. s. sub-hedar. the main objection raised by the learned counsel is that the first witness was not cited in the charge. unless prejudice is shown, simply because the witness did not figure in the list served along with the charge cannot vitiate the enquiry. it is an admitted fact that the petitioner had opportunity to cross-examine the witness and he did cross-examine. it is not the case of the petitioner that since the name of the first witness was not mentioned in the charge he could not collect the material to corss-examine her. the division bench of the myscre high court in the decision in syed hasan ali v. state of mysore, air 1965 mys 283, had occasion to consider this aspect as regards the examination of the witness who is not mentioned in the charge. it is held therein that there is no provision of rule prohibiting the enquiry officer from examining witnesses not mentioned in the charge sheet, if he considers that the said course is necessary and it is observed that all that is necessary is the delinquent officer must be given effective opportunity to cross-examine the witness. here as has already been noted, admittedly the petitioner had opportunity to cross-examine the said witness and he did cross-examine also. thus no prejudice was caused. the said submissions deserve to be rejected. the petitioner had passed a receipt of rs. 20,000/- in the name of m. k. associates and for that purpose he used the letterhead of the said firm and it is pointed out, only p.w.1 said, the petitioner returned rs. 5,000/- out of the said amount. adding to that, two other witnesses also supported the allegation that the petitioner was involved in the business of the aforesaid two firms. thus, it is not a case where there was no material before the enquiry officer to reach the conclusion as regards this aspect. it is well settled that in a proceeding under art. 226, this court cannot go into the adequacy of the evidence. in para 4 of the decision in state of haryana v. rattan singh, : (1982)illj46sc , cited supra, the supreme court has pointed out, sufficiency of evidence in proof of the finding by the domestic tribunal is beyond scrutiny, whereas absence of any evidence in support of a finding is certainly available for the court to look into because it amounts to an error of law apparent on the record. this is not a case where there was no evidence in support of the conclusions reached by the enquiry officer. in a proceeding under article 226, this court cannot re-appreciate the evidence as an appellate court and substitute its finding for the finding of the tribunal. 11. charge no. 2 concerns the drawing of the maintenance allowance by the petitioner for the ambassador car bearing no. mhx 7037 which was purchased by him with the loan granted by the 1st respondent. the allegation was that without using the car for the relevant period he has availed car allowance. admittedly, he has drawn this allowance. therefore, the only question that remains is whether for the relevant period he used the car. admittedly he had drawn scooter allowance for the same period. what appears to have transpired is, that the petitioner first availed the scooter allowance and later availed the car allowance by drawing difference between the scooter allowance and the car allowance. the aforesaid data would demonstrate that he used the scooter for the relevant period; simply because he is eligible for the car allowance he cannot get it as the right to reimbursement arise only if the concerned person has incurred expenditure towards that item. if he has only used the scooter, he was not entitled to draw the car allowance. apart from the same, there were also other materials before the authorities concerning this aspect. as regards charge no. 2, it was also urged that the enquiry officer have not adhered to rule 8, sub-rule 20 of the mcs (discipline and appeal) rules, because, he did not put the circumstances arising from the evidence concerning these aspects to the delinquent officer. the point urged is, since the said circumstance was not put to the delinquent officer, the enquiry officer could not have relied upon that circumstance. this provision is almost similar to s. 313, criminal procedure code. questions put by the enquiry officer to the delinquent after closing of the evidence and the answers given by him is at page 90 onwards. though specific question as to the drawing of the allowance is not put to him, the last answer given by the petitioner is that he has nothing more to say as regards the evidence and the earlier questions and answers thereof would suggest that he was aware of the charge and the evidence with respect to the drawing of the car allowance when he was questioned; still he said that he has nothing more to say as regards the evidence. besides this he had filed annexure n a detailed statement, and his answers in his examination indicates that he had already filed his written statement on 10-8-1984, and his stand was in addition to the same he has nothing to say. that written statement is at annexure 'n' at page 83. he has explained the evidence about the car allowance in paragraph 4 of annexure n. even in the criminal proceedings mere failure to put a circumstance against the accused appearing in the evidence to him by itself need not vitiate the trial. in lalchand dhanpat singh jain v. state of maharashtra, : 1975crilj246 , adverting to the requirement of sec. 342 of the unamended criminal procedure code the supreme court said that, where the appellant accused was fully aware of the nature of the allegations made against him and in addition to giving a detailed explanation, he had also filed an elaborate written statement and had not raised any objection either in trial court or the appellate court as to non compliance of section 342, criminal procedure code it held that though the general form of questions put to accused does not strictly comply with section 342, he has not suffered any injustice and his conviction is not vitiated. in shivaji sahabrao bobade v. state, 1973 scc (criminal) 1033, also the effect of failure to put question regarding a circumstance appearing in the evidence against the accused was considered and the court observed at page 1046 as below : 'however, where such an omission has occurred it does not ipso facto vitiate the proceedings and prejudice occasioned by such defect must be established by the accused. in the event of evidentiary material not being put to the accused, the court must ordinarily eschew such material from consideration. it is also open to the appellate court to call upon the counsel for the accused to show what explanation the accused has as regards the circumstances established against him but not put to him and if the accused is unable to offer the appellate court any plausible or reasonable explanation of such circumstances, the court may assume that no acceptable answer exists and that even if the accused had been questioned at proper time in the trial court he would not have been able to furnish any good ground to get out of the circumstances on which the trial court had relied for its conviction'. we have referred to these decisions to demonstrate even where the provisions of criminal procedure code apply, mere failure to question the accused on the circumstance arising from the evidence need not vitiate the trial. if that is the position in criminal case, it is more so in the case of domestic enquiry. since he had filed statement 'n' and said nothing more to add; it is not possible to conclude that any prejudice was caused to the petitioner. consequently, the said argument by the petitioner cannot be sustained. 12. charge no. 3 concerns the sale of car mhx 7037 before remittance of the loan which remained outstanding. the car was sold on 16-3-1983. the stand taken by the petitioner is that he had remitted the loan by the bank draft dated 15-3-1983, that is, a day before the sale, he remitted the outstanding by drawing the draft in favour of the 1st respondent on 15-3-1983. therefore, according to the petitioner only after full discharge of the loan on 15-3-1983, he sold the car on 16-3-1983. according to him on 15-3-1983, he had submitted a demand draft of rs. 10,000/- in full discharge of the amount before the accounts branch, but the concerned officer refused to accept the demand draft maintaining that the same should be accompanied by a forwarding letter and thereafter, according to him he could submit the draft only on 18-3-1983 as his brother-in-law died on 15-3-1983. this is the averment in annexure n which he filed after closing of the evidence. it is a fact that the demand draft was drawn on 15-3-1983. from the aforesaid sequence of events, it will be clear that on 15-3-1983, the petitioner had drawn a draft in favour of the first respondent with an intention to clear off the outstanding before the sale of the car and thus he tried to deposit it before the sale of the car. but, as indicated because of the reasons stated by him in paragraph 3 he could not deposit it on the same date. the point is, on the date of sale of the car he had made every attempt to clear off the liability and he has in fact remitted the amount in the bank; and when such data was before the enquiry officer, it is not a question of adequacy of evidence or re-appreciation of the evidence, it is an instance of absence of evidence in support of the charge that he sold the car when there was an outstanding loan. that amounts to question of law wherein this court can interfere and, therefore, we consider that charge no. 3 concerning the sale of the car could not be held to have been proved. consequently, we set aside the finding recorded by the enquiry officer in charge no. 3 and accepted by the disciplinary authority. the consequence of the setting aside of one of the charges on the punishment to be imposed, we will consider later. 13. the learned counsel for the petitioner maintained that there is failure of natural justice, since before the service of the show cause notice on accepting the enquiry report, copy of the enquiry report was not furnished to him. the punishment was inflicted on the petitioner on 11-7-1985. what is to be highlighted in this connection is, though copy of the enquiry report was not furnished before the show cause notice, the same was furnished to him at his request and he filed his say to the show cause notice after that. the point urged by the learned counsel is that the non-furnishing of the copy of the report of the enquiry before show cause notice has affected his right to prove his innocence and thus principle of natural justice is violated. the decision in md ecil v. b. karunakar, : (1994)illj162sc , held although on account of 42nd amendment of the constitution, it was no longer necessary to issue notice to the delinquent officer, to show cause about the proposed punishment and to furnish copy of the inquiry officer's report along with the notice to make representation about the penalty, whenever the enquiry officer is other than the disciplinary authority and the report finds the employee guilty of all or any of the charges with proposal of any punishment or not, the employee is entitled to copy of the report to enable him to make representation to the disciplinary authority against the finding on the report and the non-furnishing of it amounts to violation of natural justice. the said decision notes with approval that the same is the law laid down in ramzan khan's case : (1991)illj29sc . what is important to be noted is that the requirement of furnishing copy of the enquiry report itself is made effective only from 20-11-1990 as is reported in the above cited supreme court decision, relying on ramzan khan's case. in md ecil's case, : (1994)illj162sc referred to early the supreme court held, no order of punishment passed before that date would be challengeable on the ground that there was a failure to furnish inquiry report to the delinquent employee. thus as of right the petitioner may not be able to insist that the copy of the enquiry report should have been furnished before the show cause notice as the enquiry came to an end on inflicting the punishment on 11-7-1985. at page 1092 of the md ecil's case, : (1994)illj162sc (cited supra), the supreme court observed : 'hence, in all cases where the enquiry officer's report is not furnished to the delinquent employee in the disciplinary proceedings, the courts or tribunals should cause copy of the report to be furnished to the aggrieved employee if he has not already secured it before coming to the court/tribunal and give the employee an opportunity to show how his or her case was prejudiced because of non-supply of the report. if after hearing the parties, the court/tribunal comes to the conclusion that the non-supply of the report would have made no difference to the ultimate findings and the punishment given, the court/tribunal should not interfere with the order of the punishment'. here as already noticed copy of the enuiry report was furnished to the petitioner by the authority itself and he had filed his reply to the proposed punishment as well as the findings of the disciplinary officer. the 1st respondent considered the reply of the petitioner before it made the final decision. in such circumstances, it is impossible to infer that the petitioner was in any way prejudiced by the omission to furnish the report before the show cause notice. the argument is thus without any force and, therefore, cannot be accepted. 14. yet one other submission made by the learned counsel for the petitioner is that the enquiry officer since has failed to recommend the punishment has not followed rule 8(25) of the mcs (discipline and appeal) rules which also vitiates the report. this submission as such is not correct because though any specific punishment was not recommended by the enquiry officer, in para 7, annexure t, the enquiry officer had recommended that action is to be taken for the misconduct found to have been proved. in considering this aspect the fact that the recommendation by the enquiry officer need not bind the disciplinary authority cannot be ignored. it is for the disciplinary authority to apply its mind in the context of the reply filed by the delinquent to arrive at the conclusion as to the nature of the punishment to be inflicted. mere omission to suggest the punishment cannot be said to vitiate the final order, if no prejudice thereby is caused to the delinquent officer. it is stated in the affidavit of the 1st respondent dated 25-3-1997 that the enquiry officer was present when the board considered his report and decided to issue show cause notice to the petitioner for inflicting the punishment of compulsory retirement as proposed by the enquiry officer. in the light of what is stated above the said submission on behalf of the petitioner loses all its force. 15. next it was attempted to maintain that the enquiry officer did not consider the evidence of the witnesses examined by the petitioner. it is not as if there was no consideration at all. he does briefly advert to the evidence of the defence witnesses. detailed discussion of the evidence at the hand of the enquiry officer is a virtue. yet, it is not a case of total omission to consider the evidence. as has already been noted in proceeding under article 226 of the constitution, this court cannot reappreciate the evidence. in view of the fact that there was consideration of the evidence adduced by the petitioner, the petitioner cannot successfully maintain that the report is bad, unless he is able to point out that the conclusion reached by such consideration of evidence is perverse which resulted in miscarriage of justice. no such things exist here. 16. now one of the main argument of the learned counsel for the petitioner shri kothari is that the punishment that is inflicted on no ground can be supported in law, as according to him, firstly, because the punishment now imposed, 'discharge' is not a punishment provided in rule 5 of the mcs (discipline and appeal) rules, secondly, the proposed punishment as per the show cause notice annexure 's' being of compulsory retirement the concerned authority has no jurisdiction to impose a higher punishment and lastly, even as per the resolution of the 1st respondent dated 16th may, 1985, the trust the appointing authority resolved only to impose the punishment of compulsory retirement. 17. rule 5 of the said rules does not contain punishment of 'discharge'. sub-rule (vii) of rule 5 of the said rules provides for compulsory retirement, sub-rule (viii) of rule 5 provides for removal from service and sub-rule (ix) of rule 5 provides for dismissal from service. the relative gravity of the said punishments can be assessed from the said sub-rules themselves. all that is to be stressed in this context is that, there is no punishment as 'discharge' in rule 5. in such circumstance the effect of 'discharge' has to be gone into. in the decision reported in chamanlal seth v. state of uttar pradesh, : (1958)iillj380all , the effect of the word 'discharge' of the government servant is considered and it is observed that when the government servant is 'discharged' from the service the use of the word 'discharged' is not conclusive, and it is the substance of the matter which must be looked at; and if the government servant had been removed from the service as punishment, the use of the word 'discharged' would not absolve the government from complying with the provisions of article 311(2). this decision refers to the decision of the supreme court in shyamlal v. state of u. p. : (1954)iillj139sc . the decision ramesh chandra v. province of bengal, 57 cwn 767, holds the view that the word 'discharge' has the same connotation of removal from the service and would be construed so as to be included within the term dismissal in section 240(3) of the government of india act, 1935. in the context of the fact that even where the punishment imposed is compulsory retirement, the government servant would be entitled to certain pension under the mcs pension rules, which may not be available in the case of removal from the service, it is undoubtedly clear that 'discharge' is a higher punishment than the compulsory retirement. this aspect finds support from rule 19 of the msc (pension) rules, 1982 (for short 'the pension rules'). rule 19 of the said rules deals with removal or compulsory retirement from the service for misconduct, insolvency or inefficiency. though note 2, rule 19 states that except where it is expressly stated otherwise removal includes the case of the government servant who has been also asked to retire under the said rule. so far as the retirement benefits are concerned the benefits as per the said rules for a person who is removed from the service and one who is compulsorily retired need not necessarily be the same. shortly, put the consequences of 'discharge' and 'compulsory retirement' are not same or similar. now, having noted the word 'discharge' particularly for the misconduct, will amount to 'removal' from the service, it has to be concluded that the said punishment is a higher punishment than the punishment of compulsory retirement, especially, in the context of rule 5 of the mcs (discipline and conduct) rules. once that is the position, the chairman evidently had no jurisdiction or authority to inflict the punishment higher than the punishment for which show cause notice was issued. this is more so in this case as after considering the reply of the petitioner in response to show cause notice the first respondent trust had decided by way of resolution to impose only a punishment of compulsory retirement, and it is also not the case of the first respondent that discharge is equivalent to compulsory retirement. on the other hand in paragraph 55 of the return they have stated that if this court comes to the conclusion that the punishment imposed is not legal and proper the respondent trust may impose the punishment of compulsory retirement and would also make the payment of consequential arrears to the petitioner on the basis of the compulsory retirement. all that to be observed in this connection is, the respondent has by inflicting the punishment of 'discharge' has imposed a higher punishment than 'compulsory retirement'. it was urged by the learned counsel for the 1st respondent that this court may not be competent to impose lesser punishment in the proceedings under art. 226. reference was made to the decision reported in state bank of india v. samarendrakishor, 1994 1 clr 663 , wherein the supreme court held that where the high court or administrative tribunal considers that punishment imposed is harsh, the proper course is to remit the case back to the disciplinary authority. in this connection it is necessary to note the decision in b. c. chandar v. union of india, : (1996)illj1231sc , wherein the supreme court held if the punishment imposed by the disciplinary authority shocks the conscience of the high court/tribunal, it would appropriately mould the relief either directing the disciplinary authority to reconsider the penalty imposed or to shorten the penalty, alternatively it may itself in exceptional and rare cases impose appropriate punishment with cogent reasons. thus in exceptional cases where the punishment is harsh the high court can mould the relief and impose appropriate punishment. here the case is different. this exactly is not a case of the punishment imposed is harsh and disproportionate to the misconduct proved. here the question essentially is whether the appointing authority had jurisdiction to impose a punishment higher than the punishment for which the show cause notice was issued after considering the report of the enquiry officer. evidently, though the appointing authority may have jurisdiction and power to inflict higher punishment the authority cannot impose a punishment higher than the one proposed in the show cause notice. therefore, this is a case of lack of authority and jurisdiction to impose the higher punishment. in that view of the matter this court has jurisdiction to quash the punishment which is higher than the punishment for which show cause notice was issued. 18. now the only question that remains is whether the proposed punishment is commensurate with charges 1 and 2 of the misconduct. appointing authority has issued the show cause notice on the basis of three charges which the enquiry officer found to have been proved. we have already come to the conclusion that charge no. 3 is not proved. now, whether the punishment of compulsory retirement is commensurate with charges nos. 1 and 2 remain to be considered. in state of orissa v. bidyabhushan mohapatra, : (1963)illj239sc the supreme court stated : 'therefore, if the order may be supported on any finding as to substantial misdemeanour for which the punishment can lawfully be imposed, it is not for the court to consider whether that ground alone would have weighed with the authority in dismissing the public servant. the court has no jurisdiction if the findings of the enquiry officer or the tribunal prima facie make out a case of misdemeanour to direct the authority to reconsider that order because in respect of some of the findings but not all it appear that there had been violation of the rules of natural justice'. this decision has been relied upon in the case reported in railway board, new delhi v. niranjan singh, : (1969)iillj743sc . therefore, the punishment consistent with the show cause notice and the resolution of the 1st respondent that could be imposed upon the petitioner was only compulsory retirement. it cannot be said in the context that the said punishment is shockingly disproportionate to the two charges which have already been found to have been proved. 19. the other question that remains for consideration is as to the period of suspension. the point urged by the learned counsel for the petitioner is that the resolution by the 1st respondent which finally resolved to inflict the punishment of compulsory retirement does not make any reference to the period of suspension. it has to be mentioned, the resolution which directed to issue show cause notice did mention as to how the period of suspension had to to be treated. annexure 's' the show cause notice specifically required to show cause regarding proposed punishment and as to why the period of suspension should not be treated as the suspension period during which he would be entitled only for subsistence allowance. the resolution dated 16th may, 1985 which was rendered by the 1st respondent, after considering the reply by the petitioner in answer to show cause notice simply resolved to inflict the punishment of compulsory retirement does not make any reference to the period of suspension. the question now for consideration is whether in the said backdrop is it open to the petitioner to contend that the period of suspension must be treated as duty though, he is directed to be compulsorily retired. the learned counsel for the petitioner submitted that the period has to be treated as duty on another ground also, that is, the chairman of the trust had no authority or power to suspend an employee under section 22(b) of the nagpur improvement trust act, 1936. this second limb of the argument in content and purpose is to challenge the very order of suspension itself which at no stage he has challenged. elsewhere, in this judgment we have dealt with the correctness of the procedure adopted for suspension and has found against the petitioner. rule 17 of the mcs (discipline and appeal) rules specifically proves for appear against suspension. admittedly, the petitioner did not prefer any appeal against the suspension. evidently, this is a very belated argument, particularly, when this matter of suspension was brought to the notice of the first respondent, it did not disapprove the steps taken by the chairman. therefore, we do not consider that the said argument as regards the power of the chairman to suspend is available at this stage. now the other question concern the effect of the period of suspension. the suspension merges with dismissal. in the decision in the state of u. p. v. lalai singh yadav, the supreme court observed in paragraph 41 as below : 'when an officer is suspended no work is taken from him but he does not cease to be in service. when he is dismissed the link with the service is snapped and naturally the order of suspension merges in dismissal. nothing remains to be done about his suspension'. the effect of compulsory retirement on finding of misconduct also amounts to termination of service. therefore, the said observation of the supreme court applies to this case also. sub-rule 5(a) of rule 4 of the mcs (discipline and appeal) rules also states that an order of suspension made or deemed to have been made under the said rule shall continue to remain in force until it is modified or revoked by the authority competent to do so. the order of suspension was not modified, and later the punishment of compulsory retirement was decided to be inflicted. in view of the law laid down by the supreme court, the suspension merges with the order of compulsory retirement which has the effect of termination of service. hence the argument with respect to the period of suspension is also not sustainable. 20. in the result the writ petition succeeds in part. the instant punishment of 'discharge' inflicted on the petitioner is quashed, and the punishment in the show cause notice of 'compulsory retirement' is restored. it goes without saying that the petitioner shall be entitled to the benefits as per the pension rules applicable to him in this regard. the petitioner's entitlement for the same shall be considered and paid by the respondent on or before 31st may, 1997. there will be no order as to costs. 21. petition partly allowed.