Holding

When a disciplinary complaint is transferred to the Bar Council of India under Section 36B(1), the BCI acquires original jurisdiction and cannot remand the matter back to the State Bar Council; it must dispose of the complaint itself.

Summary

The appellant, an advocate enrolled with the Bar Council of Gujarat, was subjected to disciplinary proceedings initiated by the State Bar Council after a complaint was filed. The State Bar Council failed to dispose of the complaint within the one‑year period prescribed under the Advocates Act, 1961, and consequently the matter was transferred to the Bar Council of India (BCI) under Section 36B(1). The BCI Disciplinary Committee, instead of adjudicating the complaint, remanded it back to the State Bar Council with a direction to decide within a year. The appellant challenged this remand, arguing that once transferred, the BCI acquires original jurisdiction and cannot send the case back. The Supreme Court examined the textual and contextual meaning of Sections 36, 36B(1) and 37, held that the legislature intended the BCI to dispose of transferred complaints and that the BCI’s original jurisdiction precludes a remand. Accordingly, the Court set aside the BCI’s order, remanded the matter to its own Disciplinary Committee for disposal within three months, and allowed the appeal.

Issues considered

Whether, after a disciplinary complaint is transferred to the Bar Council of India under Section 36B(1) of the Advocates Act, 1961, the BCI can remand the matter back to the State Bar Council with a direction to dispose of it within a stipulated time.
Whether the BCI’s power to "dispose of the same as if it were a proceeding withdrawn for inquiry" under Section 36 includes the power to remand.
Distinction between the BCI’s original jurisdiction under Section 36B(1) and its appellate jurisdiction under Section 37.

Legislation cited

Advocates Act, 1961s. 35, s. 36, s. 368, s. 36B(1), s. 37, s. 42, s. 49

Subjects

Advocates Actdisciplinary proceedingsBar Council of Indiaoriginal jurisdictionremandstatutory interpretationprofessional misconducttime limitstatutory bodylegal profession

Judgment

[2017] 5 S.C.R. 984

A AJITSlNH ARJUNSlNH GOHlL
v.
BAR COUNCIL OF GUJARAT AND ANR.
(Civil Appeal No. 8307 of2015)
B APR1L06,2017
[DIPAK MISRA AND A. M. KHANWILKAR, JJ.[
Advocates Act, 1961:
s.36B(l) - Complaint against Advocate - Transfer of
c disciplinary proceedings, to the Bar Council of Jndia (BCJ) ,fi-om
the State Bar Council as per mandate enshrined uls.36B(l)- Whether
the BCJ, instead of enquiring into the complaint and adjudicating
thereon, can send it back to the State Bar Council with direction to
decide the controversy within a stipulated time - Held: When the
language employed u/s. 36B(l) and s.36 are read in juxtaposition,
D
it is clear that the legislature desired that the disciplinary
proceedings are to be put to an end within a particular time frame
by the State Bar Council and if that is not done, the whole thing
gets transferred to the BCJ, which is obliged to cause an enquily -
Once original jurisdiction to deal with complaint stands transferred
E to the BCJ, it cannot be said that disposal by BCJ would include
remand - The legislature never intended either .fi·om the perspective
of the complainant or from the delinquent advocate that a complaint
transferred to BCJ, be again sent back to the State Bar Council.
s.36B(l) and s.37 - Distinction between - Held: BCJ exercises
F appellate jurisdiction u/s.37 and original jurisdiction u/s.36B(l) -
While exercising appellate jurisdiction uls.37, the BCJ can remand
the matter to the State Bar Council whereas, uls.36B(l) original
jurisdiction to deal with complaint stands transferred to the BCJ
thus, it cannot be remanded back to State Bar Council - BCJ, while
exercising original jurisdiction on transfer of a complaint, cannot
G exercise appellate jurisdiction.

Supreme Court- Directions - Pei:formance ()f duty by statutOIJ'
body - DisciplinalJ' authority of State Bar Councils found to be not
disposing of complaints within stipulated period - Held:
Responsibility to deal with the disciplinary proceedings is cast on
H
984
AJTTSINH ARJUNSINH GOHTL v. BAR COUNCIL OF GUJARAT 985

the State Bar Council, which constitutes its disciplinmy committee - A
A statutory authority is obliged to constantly remind itself that the
mandate of the statute is expediency and the stipulation of" time is
mandatory - State Bar Councils asked to take periodical stock of
cases with regard to the progress of the Disciplinmy committee and
find out the cause of delay and guide themselves to act with
B
expediency so that the Councils, as statutory bodies, do their duty
as commanded under the Act.
Interpretation of Statutes - On the text and context -
Discussed.
Advocates - Nobility of legal profession - Held: Ah advocate c
stands in a loco parentis towards the litigants - He has a paramount
duty to his client and client is entitled to receive disinterested, sincere
and honest treatment.
Allowing the appeal, the Court
HELD: 1. To understand the language employed in a D
statutory provision, stress has to be given on textual
interpretation that would match context and further to explore
the intention of the legislature. The words have to be understood
regard being had to the purpose behind it and hence, the concern
with the intention is basically to decipher the meaning of the word E
that the legislature has placed on it. When the language employed
under Section 36B(l) and Section 36 arc read in juxtaposition,
there remains no scintilla of doubt that the legislature desired
that the disciplinary proceedings are to be put to an end within a
particular time frame by the State Bar Council and if that is not
done, the whole thing gets transferred to the BCI, which is obliged F
to cause an enquiry. Thus understood, there can be no trace of
doubt that the original jurisdiction to deal with the complaint stands
transferred to the BGI. Once the original jurisdiction is
transferred, to rely upon the language that the BCI may dispose
of would include any manner of disposal which would include a G
remand, cannot be thought of. That is neither the legislative
intendment nor the legislative purpose. The legislature never
intended a complaint made against an Advocate either from the
perspective of the complainant or from the delinquent to be
transferred to BCI, again to be sent back. !Paras 23, 271 1996-E;
998-D-FJ H
986 SUPREME COURT REPORTS [2017] 5 S.C.R.

A 2.1 Once a complaint is made by a litigant, it has to follow
a definite procedure and is required to be dealt with as per the
command of the Act to conclude the disciplinary proceeding within
a period of one year from the date of receipt of the complaint or
the date of initiation of the proceedings at the instance of the
State Bar Council. On many occasions, it has come to the notice
B
of this Court that disciplinary authority of the State Bar Council
is not disposing of the complaint within the stipulated period, as
a consequence of which the proceeding stands transferred to the
BCI. The responsibility to deal with the disciplinary proceedings
is cast on the State Bar Council which constitutes its disciplinary
c committee. Every member of the Disciplinary Committee is
aware that the proceeding has to be concluded within one year.
The complainant and the delinquent advocate are required to
cooperate. Not to do something what one is required to do,
tantamount to irresponsibility and the prestige of an institution
D or a statutory body inheres in carrying out the responsibility. One
may not be always right in the decision but that does not mean to
be shirking away from taking a decision and allow the matter to
be transferred by operation of law to the BCI. A statutory
authority is obliged to constantly remind itself that the mandate
of the statute is expediency and the stipulation of time is
E mandatory. The Disciplinary Committee is expected to perform
its duty within a time frame and not to create a blameworthy
situation. When duties are given by law, duties are required to
be performed. [Para 42] [1003-D-G]
2.2 It is advisable that the State Bar Councils take a periodical
F stock of cases in each meeting with regard to the progress of the
Disciplinary Committee, find out the cause of delay and guide
themselves to act with expediency so that the Council, as a
statutory body, does its duty as commanded under the Act. [Para
431 [1004-A-BI
G Reserve Bank of India v. Peerless General Finance and
Investment Co. Ltd. and others (1987) 1 SCC 424:
[1987) 2 SCR 1; Atma Ram Mittal v. Ishwar Singh Punia
(1988) 4 sec 284 : [19881 2 Suppl. scR 528;
S. Gopal Reddy v. State of A.P. (1996) 4 SCC 596 :

H
AJITSlNH ARJUNSlNH GOHlL v. BAR COUNCIL OF GUJARAT 987

[19961 3 Suppl. SCR 439; High Court of Gujarat A
and another v. Gujarat Kishan Mazdoor Panchayat and
others (2003) 4 SCC 712 : [20031 2 SCR 799; Narendra
Singh v. Chhotey Singh and another (1983) 4 SCC 131;
Raja Ram Mahadev Paranjype v. Aba Maruti Mali
[19621 Suppl. 1 SCR 739; R v. Boteler (1864) 33 LJMC
B
101 : 122 ER 718; O.N. Mahindroo v. District Judge,
Delhi (1971) 3 SCC 5: [19711 2 SCR 11; Sanjiv Dutta,
Dy. Secretary, Ministry of Information & Broadcasting,
Jn re (1995) 3 sec 619 : [19951 3 SCR 450; Sudha V.
President, Advocates Association, Chennai and others
(2010) 14 SCC 114 : (20101 14 SCR 289; Dhanraj c
Singh Choudhary v. Nathulal °Vishwakarma (2012) 1
SCC 741 : 120111 16 SCR 240; V.C. Rangadurai v. D.
Gopalan and others (1979) 1 SCC 308 : 119791 1
SCR 1054; Pandurang Dattatraya Khandekar v. Bar
Council of Maharashtra, Bombay and others (1984) 2
D
SCC 556 : [19841 1 SCR 414 - referred to.
Case Law Reference
[19871 2 SCR 1 referred to Para 23
[19881 2 Suppl. SCR 528 referred to Para 24
E
[19961 3 Suppl. SCR 439 referred to Para 25
[20031 2 SCR 799 referred to Para 26
(1983) 4 sec 131 referred to Para 28
(19621 Suppl. 1 SCR 739 referred to Para 29
F
122 ER 718 referred to Para 29
[19711 2 SCR 11 referred to Para 29
[19951 3 SCR 450 referred to Para 32
[20101 14 SCR 289 referred to Para 35 G
(2011) 16 SCR 240 referred to Para 38
[19791 1 SCR 1054 referred to Para 39
(1984) 1 SCR 414 referred to Para 41
H
988 SUPREME COURT REPORTS (2017] 5 S.C.R.

A CIVIL APPELLATE JURISDICTION: Civil Appeal No. 8307
of 2015.
From the Judgment and Order dated 20.06.2015 of the Disciplinary
Committee of the Bar Council of India, New Delhi in B. C. l. Tr. Case
No.197of2011.
B M. L. Lahoty, Adv., (A.C.).
Anup Kumar, Mrs. Neha Jaiswal, Advs. for the Appellant.
D. N. Ray, Lokesh K. Choudhary, Mrs. Sumita Ray, Preet Pal
Singh, Advs. for the Respondents.
The Judgment of the Court was delivered by
c DIPAK MISRA, J. 1. The singular issue that is required to be
addressed in this appeal is whether after transfer of a disciplinary
proceeding, as per the mandate enshrined under Section 36B(I) of the
Advocates Act, 1961 (for brevity, "the Act") to the Bar Council of India
(BCI) from the State Bar Council, can the BC!, instead of enquiring into
D the complaint and adjudicating thereon, send it back to the State Bar
Council with the direction to decide the controversy within a stipulated
time. It is interesting to note that Mr. Preet Pal Singh, the learned counsel
for BCI would concede that the said statutory authority has no such
power. Mr. D.N. Ray, learned counsel appearing for the Gujarat State
Bar Council would propound with all the thrust at his command that BC!
E
has unfettered jurisdiction to pass such an order inasmuch as it is the
apex statuto1y body under the Act and it possesses plenary powers and,
in any case, the language of the statutory provision does not create any
impediment for the same. Mr. Anup Kumar, learned counsel for the
appellant, as is expected, concurs with the proponement of Mr. Singh
F and further submits that the time consumed in disposal of the disciplinary
authority has put the appellant in a situation of misery and, therefore, this
Court should quash the initiation of the disciplinary proceedings so that
efflux of time can give the appellant a healing touch and put an end to
the agony he has already endured.
G 2. In such a situation, thinking it apposite, the Court appointed Mr.
M.L. Lahoty, learned counsel, as the friend of the Court, who submitted
with immense assurance that acceptance of the stand of the State Bar
Council would not only run counter to the language employed by the
legislature but shall cause immense violence to the same and the duty of
this Court is to give full meaning to the legislative intendment.
H
AJITSINH ARJUNSINH GOHIL v. BAR COUNCIL OF GUJARAT 989
[DIPAK MISRA, J.]

3. We may, in brief, state the factual score. The appellant, who A
was enrolled as an Advocate with the Bar Council of Gujarat, got elected
to the post of Secretary of Gandhinagar Bar Association in 2007 and
subsequently he was elected as the President of the Bar Association in
2008. One Mr. J'.D. Kanani, who was the Secretary of the Bar
Association due to differences leveled false allegations and filed false
B
civil and criminal cases against the appellant and also wrote a letter
dated 04.09.2008 in this regard to the Secretary, Bar Council of Gujarat
alleging that he was denied access to certain records and the accounts
and there was misappropriation of huge amount of the Bar Association.
The differences and the misunderstanding between the appellant and
Mr. P.D. Kanani was resolved and a settlement was arrived at between c
the parties on 18.09.2008 and the book of accounts and other records
were handed over by the appellant to Mr. Kanani.
4. When everything appeared to have been put to rest, after expiry
of one year and three months, Bar Council of Gujarat vide its B.C.
Resolution No. 176 of 2009 dated 06.12.2009 resolved to call for an D
explanation from the appellant with regard to complaint preferred by
Mr. P.D. Kanani and further putting forth an allegation that it had received
a letter dated 01.06.2010 from the Registrar, High Court of Gujarat
regarding complaint against the appellant. On the basis of letter dated
01.06.2010, Bar Council of Gujarat took suo motu cognizance against
the appellant and referred the matter to Disciplinary Committee III. The E
complaint was registered as DC Case No. 25/2010.
5. It is worthy to note that the Bar Council of Gujarat decided to
conduct trial of D.C. case No. 25120 IO along with D.C. Case No. 15/
2010 before the Disciplinary Conunittee No. I. The case of the appellant
was again transferred to Disciplinary Committee No. XII and again to F
Disciplinary Conunittee No. IX.
6. As the factual matrix would depict, the appellant, upon filing of
application, was granted time to file his written arguments but without
waiting for the reply of the appellant, the Bar Council of Gujarat vi de its
order dated 17.05.2011 decided D.C. Case No. 15/2010 against the G
appellant and directed removal of the name of the appellant from roll of
Bar Council of Gujarat and imposed costs of Rs.50,000/-. However, as
no order could be passed in D.C. Case No. 25/2010 during the statutory
period, subsequently, the Disciplinary Committee of the Bar Council of
Gujarat vi de letter dated 24.08.2011, transferred the D.C. Case No. 25/
2010 to the BC! which was registered as BCI Tr. Case No. 197/2011. H
990 SUPREME COURT REPORTS [2017] 5 S.C.R.

A 7. The appellant contended before the Disciplinary Committee of
the BCI that there was no such letter dated 01.06.20 I 0 purported to be
written by the Registrar (Inspection), High Court of Gujarat on the basis
of which cognizance against appellant had been taken. The Disciplinary
Committee, after hearing the appellant, vi de order. dated 20.06.2015
remanded the matter to the Bar Council of Gujarat with a direction to
B
dispose of the case within a period of one year. Being aggrieved, the
appellant has filed the present appeal.
8. As indicated earlier, Mr. Anup Kumar, learned counsel for the
appellant submitted that the Disciplinary Committee of the BCI could
not have remanded the matter to the Disciplinary Committee of the Bar
c Council of Gujarat as the same is not permissible in a case that has been
transferred to the BCI by operation of law under Section 36B(l) of the
Act.
9. Mr. Ray, learned counsel for the respondent No. I, in his turn,
would contend that if the language employed in Section 36B(l) and Section
D 36(2) are read in juxtaposition, it is abundantly clear that the power to
deal with the proceedings upon transfer by the BC! is different, for the
statute confers plenary power on the BCl and such plenary powers in
its ambit and sweep would include the power to remand. He would
emphasise on the words "may dispose of the same as if it were a
E proceeding withdrawn for inquiry under sub-section (2) of section 36"
and on that basis propound that the said words confer wi8de jurisdiction
on the BCl and do not restrict its jurisdiction only to decide the matter.
l 0. To appreciate the rival submissions raised at the Bar, it is
necessary to keenly scrutinize various provisions of the Act and the
F rules framed by the BC!. Prior to that, it has to be kept in mind that the
Act was brought into force to amend and consolidate the law relating to
legal practitioners and to provide for the constitution of Bar Councils
and an All-India Bar. The statement of objects and reasons of the Act
describes the main features, which are as follows:-

G "The main features of the Bill are, -
l. The establishment of an All India Bar Council and a common
roll of advocates, and advocate on the common roll having a
right to practice in any part of the country and in any Court,
including the Supreme Court;
H
AJITSINH ARJUNSINH GOHIL v. BAR COUNCIL OF GUJARAT 991
[DlPAK MISRA, J.]

2. The integration of the bar into a single class oflegal practitioners A
know as advocates;
3. The prescription of a uniform qualification for the admission
of persons to be advocates;
4. The division of advocates into senior advocates and other
advocates based on merit; B

5. The creation of autonomous Bar Councils, one for the whole
oflndia and on for each State.
Following the recommendations of the All India Bar Committee
and the Law Commission, the Bill recognized the continued C
existence of the system known as the dual system now prevailing
in the High Court of Calcutta and Bombay, by making suitable
provisions in that behalf: It would, however, be open tot he two
High Courts, if they so desire, to discontinue this system at any
time.
D
The Bill, being a comprehensive measure, repeals the Indian
Bar Council Act, 1926, and all other laws on the subject."
11. Section 2( e) defines "Bar Council oflndia" as follows:-
"Bar Council of India" means the Bar Council constituted under
Section 4 for the territories to which this Act extends." E
12. Section 3 deals with State Bar Councils. Section 4 provides
that there shall be Bar Council for the territories to which this Act extends
to be known as the Bar Council of India and stipulates who shall be the
members of the said Bar Council. Section 6 enumerates the functions
of the State Bar Councils. Section 6(1 )( c) empowers the State Bar F
Councils to entertain and determine cases of misconduct against advocates
on its roll. Section 7 engrafts the functions of the Bar Council oflndia.
Section 9 deals with the Disciplinaty Committees. The said provisions is
reproduced below:-
"Section 9. Disciplinary Committees. - G
( 1) A Bar Council shall constitute one or more disciplina1y
committees, each of which shall consist of three persons of whom
two shall be a person co-opted by the Council from amongst its
members and the other shall be a person co-opted by the Council
H
992 SUPREME COURT REPORTS [2017] 5 S.C.R.

A from amongst advocates who possess the qualifications specified
in the proviso to sub-section (2) of Section 3 and who are not
members of the Council, and the senior- most advocate amongst
the members of a disciplinary committee shall be the Chairman
thereof.
B (2) Notwithstanding anything contained in sub-section(!), any
disciplinary committee constituted prior to the commencement
of the Advocates (Amendment) Act, 1964, (21 of 1964) may
dispose of the proceeding pending before it as if this section had
not been amended by the said Act."

c 13. Chapter V contains the heading "Conduct of Advocates".
Section 35 deals with punishment of advocates for misconduct. Section
35(1) lays down that where on receipt of a complaint or otherwise a
State Bar Council has reason to believe that any advocate on its roll has
been guilty of misconduct, it shall refer the case for disposal to its
disciplinary committee. Section 35( I A) empowers the State Bar Council
D to may either of its own motion or on application made to it by any
person interested, withdraw a proceeding pending before its disciplinary
committee and direct the inquiry to be made by any other disciplinary
committee of that State Bar Council. Sub-section (3) of Section 35
provides for nature of orders to be passed by the disciplinary committee
E of a State Bar Council. The said provisions reads as follows:-
"Section 35(3) - The disciplinary committee of a State Bar
Council after giving the advocate concerned and the Advocate-
General an opportunity of being heard, may make any of the
following orders, namely:-
F (a) dismiss the complaint or, where the proceedings were initiated
at the instance of the State Bar Council, direct that the
proceedings be filed;
(b) reprimand the advocate;
(c) suspend the advocate from practice for such period as it
G
may deem fit;
(d) remove the name of the advocate from the State roll of
advocates."
14. Section 36 deals with the disciplinaiy powers of Bar Council
H oflndia. The said provision is as follows:-
AJITSINH ARJUNSINH GOHIL v. BAR COUNCIL OF GUJARAT 993
[DIPAK MISRA, J.]

"Section 36. Disciplinary powers of Bar Council of lndia- A
(1) Where on receipt ofa complaint or othe1wise the Bar Council
of India has reason to believe that any advocate whose name is
not entered on any State roll has been guilty of professional or
other misconduct, it shall be refer the case for disposal to its
disciplinary committee. B
(2) Notwithstanding anything contained in this Chapter, the
disciplinary committee of the Bar Council oflndia may either of
its own motion or on ·a report by any State Bar Council or an
application made to it by any person interested, withdraw for
inquiry before itself any proceedings for disciplinary action against c
any advocate pending before the disciplinaiy committee of any
State Bar Council and dispose of the same.
(3) The disciplinary committee of the Bar Council of India
disposing of any case under this section, shall observe, so far as
may be, the procedure laid down in Section 35, the references to D
the Advocate-General in that section being construed as
references to the Attorney-General of India.
(4) In disposing of any proceedings under this section the
disciplinary committee of the Bar Council of India may make
any order which the disciplinary committee ofa State Bar Council E
can make under sub-section (3) of section, 35 and where any
proceedings have been withdrawn for inquiry before the
disciplina1y committee of the Bar Council of India] the State
Bar Council concerned shall give effect to any such order."
15. Section 368 that has come into force w.e.f. 31.01.1974 provides F
for disposal of disciplina1y proceedings. The said provision is reproduced
hereinbelow:-
"Section 368. Disposal of disciplinary proceedings-
( 1) The disciplinary committee of a State Bar Council shall dispose
of the complaint received by it under Section 35 expeditiously G
and in each cash the proceedings shall be concluded within a
period of one year from the date of the receipt of the complaint
or the date of initiation of the proceedings at the instance of the
State Bar Council, as the case may be, failing which such
proceedings shall stand transferred to the Bar Council of India
H
994 SUPREME COURT REPORTS [2017] 5 S.C.R.

A which may dispose of the same as if it were a proceeding
withdrawn for inquiry under sub section (2) of section 36.
(2) Notwithstanding anything contained in sub section (I) where
on the commencement of the Advocates (Amendment) Act, 1973,
any proceedings in respect of any disciplinary matter against an
B advocate is pending before the disciplinary committee ofa State
Bar Council, that disciplinary committee of the State Bar Council
shall dispose of the same within a period of six months from the
date of such complaint, or, as the case may be, the date of initiation
of the proceedings at the instance of the State Bar Council,
whichever is later, failing which such other proceeding shall stand
c transferred to the Bar Council of India for disposal under sub-
section."
16. Relying on the said provision, it is urged by learned counsel
for the appellant that if any disciplinary proceeding against a delinquent
advocate initiated under Section 35 of the Act is not concluded within a
D period of one year, by operation of law, the same stands transferred to
BCI and BCI is authorized to dispose of the same as if it were a
proceeding withdrawn for inquiry under sub-section (2) of Section 36 of
the Act and, therefore, the State Bar Council ceases to have jurisdiction.
Emphasis has also been laid on the language employed in sub-section
E (2) of Section 36 that the BC! has the authority either of its own or on
a report by any State Bar Council or an application made to it by the
Disciplinary Committee of the person interested to withdraw for enqui1y
before itself any proceeding for disciplinary action against the advocate.
Stress is laid on the language used in sub-section (4) of Section 36 to
highlight that the Disciplinaiy Authority of the BCI is entitled to make an
F order that the Disciplinaiy Committee of a State Bar Council can make
under sub-section (3) of Section 35 and further where any proceeding
has been withdrawn for inquiry before the Disciplinaiy Committee of
the BCI, the State Bar Council concerned shall give effect to any such
order.
G 17. Learned counsel would further urge that ifthe interpretation
sought to be placed by the appellant is accepted, the BCI would be
overburdened with original proceedings from various State Bar Councils
and the mischief sought to be corrected under Section 368( I) of the
Act, namely, timely disposal of the complaint, would defeat the stah1tory
H purpose.
AJTTSTNH ARJUNSINH GOHIL v. BAR COUNCIL OF GUJARAT 995
[DIPAK MISRA, J.]

18. Learned Amicus Curiae submits that once a case is transferred A
by operation of law, it is obligatory on its part to decide the same on its
merits, for the language employed under sub-section (1) of Section 36B
encapsulates two concepts, namely, (i) transfer of proceedings on failure
to conclude the same within one year, and (ii) the BCI is to dispose of
the same as if it were the proceedings withdrawn for enquiry under sub-
B
section (2) of Section 36. Elaborating further, he would urge that there
is a transfer by operation of law and the disposal has to be done as if it
is a proceeding withdrawn for enquiry under sub-section (2) of Section
36. According to learned counsel, once by operation of law the case is
transferred, it has to be disposed of by the BCI and the manner of disposal
will not confer jurisdiction on it to send back the case to the State Bar c
Council.
19. In this context, it is appropriate to refer to Section 37 of the
Act that provides for appeal to the BCI. It stipulates that any person
aggrieved by an order passed by the Disciplinary Committee of a State
Bar Council may prefer an appeal to the BCI within 60 days of the date D
of communication of the order to him and further such appeal shall be
heard by the Disciplinary Committee of the BCI which may pass such
other order including the order varying the punishment awarded by the
Disciplinary Committee of the State Bar Council as it deems fit.
20. Section 42 of the Act that deals with the power of the E
Disciplinary Committee. The Disciplinaiy Committee of a Bar Council
has the same powers as are vested in a civil court under the Code of
Civil Procedure in respect of certain matters that pertain to enquiry. It
has been highlighted by the learned counsel for the respondent No. 1
that all proceedings before the Disciplinaiy Committee of the Bar Council
shall be deemed to be judicial proceeding within the meaning of Sections F
193 and 228 of the Indian Penal Code, 1860 and eve1y such Disciplinaiy
Committee shall be deemed to be a civil court for the purposes of Sections
480, 482 and 485 of the Code of Criminal Procedure. Learned counsel
has drawn our attention to sub-section (3) of Section 42 which reads as
follows:- G
"F or the purposes of exercising any of the powers conferred by
sub-section ( 1), a disciplina1y committee may send to any civil
court in the territories to which this Act extends, any summons
or other process, for the attendance of a witness or the production
of a document required by the committee or any commission
H
996 SUPREME COURT REPORTS [2017] 5 S.C.R.

A which it desires to issue, and the civil court shall cause such
process to be served or such commission to be issued, as the
case may be, and may enforce any such process as if it were a
process for attendance or production before itself."
21. Relying on the said provisions, it is contended by the learned
B counsel for the 1" respondent that the BCI has plenary powers to pass
an order as it feels appropriate and in certain cases of statutory transfer
or transferred by operation of law, is not remanded, there would be
enormous practical difficulties and injustice is likely to be caused and
sometimes due to delinquent advocate. In essence, the submission of
the learned counsel for the said respondent is that after transfer of inquiry,
C the BCI is not mandatorily commanded by law to complete the enquiry
and pass an order as provided under Section 35(3) of the Act. He has
also drawn inspiration from Section 49 that confers power on the BCI
for discharging the functions under the Act. It is urged by him that Rule
18(5) of Part VII of the Bar Council of India contemplates an order of
D remand ifthe language used is properly appreciated. Rule 18(5) reads
as follows:-
"Ruie 18(5). On a consideration of the report of a State Bar
Council or otherwise the Disciplinaiy Committee of the Bar
Council oflndia shall pass such orders as it considers proper."
22. Thus, the question, as posed earlier, fundamentally centres
E
around the jurisdiction of the BCI. As is discernible from the language
employed in Section 36B(l), the transfer takes place by operation of
law. There is a further command to BCI to dispose it off as if it were a
proceeding withdrawn for enquiry under sub-section (2) of Section 36.
Thus, the jurisdiction for conducting the enquiry and disposal of the
F complaint is confen-ed on the BCI by the mandate of the Act. The
context, the intention and the purpose is clear as crystal. The BCI is
required to exercise original jurisdiction that was to be exercised by the
State Bar Council.
23. To understand the language employed in a statutory provision,
G one may recapitulate what Chinnappa Reddy, J. had to say in Reserve
Bank of India v. Peerless General Finance and Investment Co.
Ltd. and others 1 :-
"33. Interpretation must depend on the text and the context. They
are the bases of interpretation. One may well say if the text is
H • (1987) 1sec424
AJITSINH ARJUNSINH GOHIL v. BAR COUNCIL OF GUJARAT 997
[DIPAK MISRA, J.]

the texture, context is what gives the colour. Neither can be A
ignored. Both are important. That interpretation is best which
makes the textual interpretation match the contextual. A statute
is best interpreted when we know why it was enacted .... "
24. Sabyasachi Mukharji, J. (as His Lordship then was) in Atma
Ram Mittal v. Jshwar Singh Punia 2, emphasizing on the intention of B
Parliament or, in other words, the will of the people, observed:-
"9. . .. Blackstone tells us that the fairest and most rational
method to interpret the will of the legislator is by exploring his
intentions at the time when the law was made, by signs most
natural and probable. And these signs are either the words, the c
context, the subject-matter, the effects and consequence, or the
spirit and reason of the law. (emphasis by the court) See
Commentaries on the Laws of England (facsimile of lst Edn.
of 1765, University of Chicago Press, 1979, Vol. l, p. 59).
Mukherjea, J. as the learned Chief Justice then was, inPoppatlal
Shah v. State ofMadras 3 said that each word, phrase or sentence D
was to be construed in the light of purpose of the Act itself. But
words must be construed with imagination of purpose behind
them said Judge Learned Hand, a long time ago. It appears,
therefore, that though we are concerned with seeking ofintention,
we are rather looking to the meaning of the words that the E
legislature has used and the true meaning of what words as was
said by Lord Reid in Black-Clawson International Ltd. v.
Papierwerke Waldhof-Ascha.ffenburg A.G. 4 • We are clearly
of the opinion that having regard to the language we must find
the reason and the spirit of the law.... "
F
25. In S. Gopal Reddy v. State ofA.P.5, the Court observed:-
" It is a well-known rule of interpretation of statutes that the text
and the context of the entire Act must be looked into while
interpreting any of the expressions used in a statute. The courts
must look to the object which the statute seeks to achieve while G
interpreting any of the provisions of the Act. A purposive approach
for interpreting the Act is necessary."
2
(1988) 4 sec 284
3
AlR 1953 SC 274
4
l975AC 591
'(1996) 4 sec 596 H
I

998 SUPREME COURT REPORTS [2017] 5 S.C.R.

A 26. In High Court of Gujarat and another v. Gujarat Kishan
·Mazdoor Panchayat and others" while discussing about the importance
of the context, the Court stated thus:-
"38. In The Interpretation and Application of Statutes by Reed
Dickerson, the author at p. 135 has discussed the subject while
B dealing with the importance of context of the statute in the
following terms:
" ... The essence of the language is to reflect, express, and perhaps
even affect the conceptual matrix of established ideas and values
that identifies the culture to which it belongs. For this reason,
language has been called 'conceptual map oflmman experience'."
c
27. The aforesaid authorities give stress on textual interpretation
that would match context and further to explore the intention of the
legislature. The authorities further emphasise the words have to be
understood regard being had to the purpose behind it and hence, the
concern with the intention is basically to decipher the meaning of the
D word that the legislature has placed on it. When the language employed
under Section 368(1) and Section 36 are read in juxtaposition, there
remains no scintilla of doubt that the legislature desired that the disciplinary
proceedings are to be put an end to within a particular time frame by the
State Bar Council and ifthat is not done, the whole thing gets transferred
E to the BCl, which is obliged to cause an enquiry. Thus understood, there
can be no trace of doubt that the original jurisdiction to deal with the
complaint stands transferred to the BCl. Once the original jurisdiction is
transferred, to rely upon the language that the BCI may dispose of would
include any manner of disposal which would include a remand, cannot
be thought of. That is neither the legislative intendment nor the legislative
F purpose. The legislature, as we find, never intended a complaint made
against an Advocate either from the perspective of the complainant or
from the delinquent to be transferred to BCI, again to be sent back.
28. At this stage, we think it appropriate to state that there is a
distinction between an appellate jurisdiction which the BCl exercises
G under Section 37 and the original jurisdiction under Section 368( 1). While
exercising the appellate jurisdiction, the BCl can remand the matter to
the State Bar Council. In this context, reference to a three-Judge Bench
in Narendra Singh v. Chhotey Singh and another7, would be apt. In

,, c2003) 4 sec 712
H 1
(1983) 4sec131
AJITSINH ARJUNSINH GOHIL v. BAR COUNCIL OF GUJARAT 999
[DIPAK MISRA, J.]

the said case, the question arose with regard to ambit and jurisdiction of A
the Disciplinary Committee of the BCI hearing an appeal against an
order of Disciplinary Committee of a State Bar Council made under
Section 35. Dealing with the same, the Court held:-
"8 .... appellate body enjoys very wide jurisdiction because it is
competent to pass any order as it may deem fit. This jurisdiction B
of widest amplitude takes within its sweep the power to vary the
punishment which would imply enhancement of punishment and
the only obligation, while varying or enhancing the punishment,
on the appellate body is to hear the person who is likely to be
prejudicially affected by such an order."
c
29. The Court thereafter addressed the issue of scope and ambit
of jurisdiction of a quasi-judicial body whose jurisdiction is defined in
such as "as it deems fit". It referred to the authorities in Raja Ram
Malzadev Paranjype v. Aba Maruti Mali" and R v. Boteler9 and opined
that the discretionary jurisdiction has to be exercised keeping in view the
purpose for which it is confetTed, the object sought to be achieved and D
the n:asons for granting such wide discretion. A reference was made to
the decision in O.N. Mahindroo v. District Judge, De/Iii'" wherein
this Court has held that dealing with an appeal under Section 38, the
jurisdiction of the Court was not restricted, for the Court is dealing with
an appeal not only on law but also on appeal on facts. In the said decision, E
examining the amplitude of power including the power to review, the
Court observed:-
"Such powers may be exercised in a suitable case for or against
an advocate even after the matter has gone through the hands
of the Disciplinary Committee at some stage or even through
F
this Court. These matters are also not governed by the analogy
of autrefois convict or autrefois acquit in the Code of Criminal
Procedure. Disciplinary proceedings against a lawyer involve
not only the particular lawyer but the entire profession. The
reputation of the legal profession is the sum total of the reputation
of the practitioners. The honour of the lawyer and the purity of G
the profession are the primary considerations and they are
intermixed."

'1962 Supp. I SCR 739; AIR 1962 SC 753
'(1864) 33 LJMC IOI: 122 ER 718
10
(I97IJ 3 secs H
1000 SUPREME COURT REPORTS [2017] 5 S.C.R.

A After so stating, the Court observed that a disciplinary proceeding
against a member of a profession whose services are made available to
society as a whole is to be involved as between the profession and its
erring manner and not between the complainant and delinquent advocate.
Emphasis has been laid on the said aspect to determine the jurisdiction
of the bodies set up to carry out the purposes of the Act.
B
30. Thereafter, the Court adve11ed to the facts of the case and
found that the Disciplinary Committee of the Bar Council of India was
not satisfied with reference to the disposal of third head of charge by the
Disciplinary Committee of the State Bar Council, and merely remanded
the matter to the Disciplinary Committee of the State Bar Council to
c assign reasons for its decision. The said direction, as the Court held, was
certainly within the powers of the appellate body as it had jurisdiction to
decide an appeal 'as it deems fit', and while so deciding, it was not
hedged in by the technical rule of appeal against acquittal.
31. Learned counsel for the l" respondent would submit that the
D words "pass such orders as it considers appropriate" would clothe the
BCI with the jurisdiction to remand the matter to the State Bar Council.
We have already referred to the statutory scheme and the purposes of
the legislation. As has been held in Narendra Singlz (supra) the
disciplinary authority can remand the matter in exercise of appellate
E jurisdiction. There can be no shadow of doubt that the BCI, while
exercising original jurisdiction on transfer of a complaint, cannot exercise
the appellate jurisdiction. Therefore, the order passed by the disciplinary
authority by placing reliance on its rules is wholly unsustainable.
32. Having expressed our opinion, ordinarily we would have
F proceeded to record the formal part of the judgment. But a significant
aspect deserves to be addressed. It pe11ains to the nobility of legal
profession. In Sanjiv Dutta, Dy. Secretary, Ministry of Information
& Broadcasting, 111 re'', the Court, taking note of various instances
which deserve to be described as unfortunate, both for the legal profession
and the administration ofjustice, observed thus:-
G
"The legal profession is a solemn and serious occupation. It is a
noble calling and all those who belong to it are its honourable
members. Although the entry to the profession can be had by
acquiring merely the qualification of technical competence, the

H 11
(1995) 3 sec 619
AJITSINH ARJUNSINH GOHIL v. BAR COUNCIL OF GUJARAT 1001
[DIPAK MISRA, J.]

honour as a professional has to be maintained by its members by A
their exemplary conduct both in and outside the court. The legal
profession is different from other professions in that what the
lawyers do, affects not only an individual but the administration
ofjustice which is the foundation of the civilised society. Both as
a leading member of the intelligentsia of the society and as a
B
responsible citizen, the lawyer has to conduct himself as a model
for others both in his professional and in his private and public
life. The society has a right to expect of him such ideal
behaviour."
33. The Court further stated:-
c
"If the profession is to survive, the judicial system bas to be
vitalised. No service will be too small in making the system
efficient, effective and credible. The casualness and indifference
with which some members practise the profession are certainly
not calculated to achieve that purpose or to enhance the prestige
either of the profession or of the institution they are serving. If D
people lose confidence in the profession on account of the deviant
ways of some of its members, it is not only the profession which
will suffer but also the administration of justice as a whole. The
present trend unless checked is likely to lead to a stage when the
system will be found wrecked from within before it is wrecked E
from outside."
34. With the aforesaid observations, the Court expected that
aberration will be less. Though the said observations had its impact, the
misconduct on the part of some Advocates still continues.
35. In Sudha v. President, Advocates Association, Che1111ai and F
others 12 , the Court, while dealing with the directions issued by the High
Court of Madras regarding the management of Madras High Court
Advocates Association, noted various facts, adverted to the resolutions
passed by the Tellers Committee, devices adopted by the Committee
constituted for peaceful meeting, and observed:- G
"Many a time it is noticed that those who are not lawyers get
entry into the Association room by putting on merely black coat
as at the time of election the feelings are running high. Such
elements take undue advantage of the situation and bring a bad
12 (2010) 14 sec 114 H
1002 SUPREME COURT REPORTS [2017] 5 S.C.R.

A name to the Association of the advocates. Therefore, to deter
such elements the amendments have been carried out in the
bye-laws. Those amendments carried out in the bye-laws of the
Association can hardly be regarded as against the legal fraternity
in general and as against junior members of the Bar in particular."
B 36. In the context of the said case, the two-Judge Bench felt
obliged to say:-
"The legal profession is different from other professions in that
what the lawyers do, affects not only an individual but the
administration of justice which is the foundation of the civilised
c society. Both as a leading member of the intelligentsia of the
society and as an intelligent citizen, the lawyer has to conduct
himself as a model for others both in his professional and in his
private and public life."
37. The aforesaid expression shows nature of the profession and
D the expectation from the society from the members of the legal
profession.
38. In Dlwnraj Singh Choudhary v. Nat/111/a/ Vislnvakarma 13 ,
it has been observed that an Advocate's attitude towards dealing with
his client has to be scrupulously honest and fair and the punishment for
E professional misconduct has twin objectives-deterrence and correction.
39. Having noted these authorities, we may recapitulate what
Krishna Iyer, J. had to say in V.C. Rangadurai v. D. Gopalan and
others 14 :-
"5. Law's nobility as a profession lasts only so long as the
F members maintain their commitment to integrity and service to
the community."
40. In this regard, a speech from Eulogy o.lJudges by Piero
Calamandrei 15 would be seemly:-
"The difference between the hue lawyer and those men who
G consider the law merely a trade is that the latter seek to find
ways to permit their clients to violate the moral standards of
society without over-stepping the letter of the law, while the
13(2012) 1 sec 741
" (1979) 1 sec Jos
H " Princeton, New Jersey: Princeton University Press, 1946), p.45.
AJITSINH ARJUNSINH GOHIL v. BAR COUNCIL OF GUJARAT 1003
[DIPAK MISRA, J.]

former look for principles which will persuade their clients to A
keep within the limits of the spirit of the law in common moral
standards."
41. We have a purpose in referring to the aforesaid
pronouncements. A lawyer is treated as a part of the noble profession
and expected as an elite member of the society, to be professionally B
responsible and constantly remind himself that his services are rendered
to the consumers of justice. As has been held in Pamlurang Dattatraya
Khandekar v. Bar Co1111cil of Maharashtra, Bombay and ollters' 6 ,
an advocate stands in a loco parentis towards the litigants. He has a
paramount duty to his client and client is entitled to receive disinterested,
sincere and honest treatment.
c
42. Once a complaint is made by a litigant, it has to follow a
definite procedure and is required to be dealt with as per the command
of the Act to conclude the disciplinary proceeding within a period of one
year from the date ofreceipt of the complaint or the date of initiation of
the proceedings at the instance of the State Bar Council. On many an D
occasion, it has come to the notice of this Court that disciplinary authority
of the State Bar Council is not disposing of the complaint within the
stipulated period, as a consequence of which the proceeding stands
transferred to the BCI. The responsibility to deal with the disciplinary
proceedings is cast on the State Bar Council which constitutes its E
disciplinary committee. Every member of the Disciplinary Committee is
aware that the proceeding has to be concluded within one year. The
complainant and the delinquent advocate are required to cooperate. Not
to do something what one is required to do, tantamountto irresponsibility
and the prestige of an institution or a statut01y body inheres in carrying
out the responsibility. One may not be always right in the decision but F
that does not mean to be shirking away from taking a decision and allow
the matter to be transferred by operation oflaw to the BCI. A statutory
authority is obliged to constantly remind itself that the mandate of the
statute is expediency and the stipulation of time is mandatory. It will not
be erroneous to say that the Disciplinary Committee is expected to G
perform its duty within a time frame and not to create a blameworthy
situation. It is better to remember offering an explanation to one's own
conscience is like blaming everything on "accident". When duties are
given by law, duties are required to be performed.

" c1984) 2 sec 556 H
1004 SUPREME COURT REPORTS [2017] 5 S.C.R.

A 43. In view of what we have stated above, we think it will be
advisable that the State Bar Councils take a periodical stock of cases in
each meeting with regard to the progress of the Disciplinary Committee,
find out the cause of delay and guide themselves to act with expediency
so that the Council, as a statutory body, does its duty as commanded
under the Act.
B
44. In view of the aforesaid, we allow the appeal, set aside the
order passed by the Disciplina1y Committee of the BC! and remand the
matter to the Disciplinary Committee of the BCI to decide the same in
accordance with law within a period of three months from the date of
receipt of copy of this judgment. Registry is directed to send a copy of
c this judgment to all the Secretaries of each of the State Bar Council,
who in tmn can apprise the members of the State Bar Council so that
appropriate steps are taken. There shall be no order as to costs.

Ankit Gyan Appeal allowed.

v