Holding

When irregularities in a public recruitment are all‑pervasive and vitiate the entire process, the authority may lawfully cancel the whole selection without issuing individual show‑cause notices.

Summary

The Railway Recruitment Board (RRB) Bangalore advertised for Junior Clerk‑cum‑Typist posts and appointed candidates, including the respondent. A CBI investigation later uncovered widespread irregularities—absence of a mandatory typing test, tampering of answer sheets, and procedural violations—rendering the entire selection process mala fide. Consequently, the Railway Board cancelled the whole selection and terminated the services of all selected candidates. The respondent challenged the termination before the Central Administrative Tribunal, which set aside the termination on the ground that individual show‑cause notices were required, a decision upheld by the High Court. The Supreme Court allowed the Union’s appeal, holding that when irregularities are pervasive and vitiate the entire recruitment, the authority may cancel the whole selection without individual notices, and upheld the termination under Article 311 of the Constitution.

Issues considered

Whether cancellation of an entire recruitment and termination of services without individual show‑cause notices violates the principles of natural justice and Article 311 of the Constitution.
Whether pervasive irregularities in a selection process justify the cancellation of the whole selection without individual notices.
Whether a CBI report can be the sole basis for such cancellation.

Legislation cited

Constitution of Indias. Article 311

Subjects

Service lawTermination of servicesRecruitment irregularitiesNatural justiceArticle 311Show cause noticeRailway Recruitment BoardCBI reportWhole selection cancellation

Judgment

UNION OF INDIA AND ORS. A
v.
O.CHAKRADHAR

FEBRUARY 19, 2002

(G.B. PATTANAIK AND BRJJESH KUMAR, JJ.] B

Service Law:

Termination-Railways-Junior Clerk-cum-Typist-Recruitment-
Irregularities in selection process-Termination of services of entire selected C
candidates without issuing individual show cause notices-Validity of-Held,
where the irregularities committed in selection so widespread and all pervasive
that it is difficult to pick out the persons who have been unlawfally benefited
or wrongfully deprived, it will neither be possible nor necessary to issue
individual show cause notices-Thus, Railway Board was justified in cancelling D
the entire selection process-Constitution of India- -Article 311.

The Railway Recruitment Board issued an advertisement for
recruitment to the post of Junior-Clerk-cum-Typist and in pursuance of the
selection, respondent was appointed. Subsequently, the Railway
Administration passed an order terminating the services of entire selected E
candidates on the ground that serious irregularities had been committed in
conducting the examination. Respondent whose service was also terminated
filed a petition before the Central Administrative Tribunal. Tribunal set aside
the termination order holding that general allegation of irregularities in the
recruitment process was not enough to take a decision to cancel the whole F
selection without issuing proper show cause notice to the individual candidates.
Appellant's appeal before the High Court was dismissed. Hence the present
appeal.

On behalf of the appellants it was contended that in a case where
irregularities committed in the process of selection were all pervasive vitiating G
the whole selection, in that event there was no requirement that each selectee,
be served with individual show cause notice before cancelling the whole
selection.

Allowing the appeal, the Court
1091
H
1092 SUPREME cm:Rr REPORTS 12002] I S.C.R.

A HELD: I.I. The Railway Board's decision to cancel the selection cannot
be faulted with. Thus, the orders passed by the Tribunal and the High Court
are set aside and the order of termination of the services of the respondent is •
upheld. (1098-F-G)

1.2. The nature and the extent of illegalities and irregularities committed
B in conducting a selection will have to be scrutinized in each case \Oas to come
to a conclusion about future course of action to be adopted in the matter. If
the mischief played is so widespread and all pervasive, affecting the result, so
as to make it difficult to pick out the persons who have been unlawfully
benefited or wrongfully deprived of their selection, in such cases it will neither
C be possible nor necessary to issue individual show cause notices to each •
selectee. The only way out would be to cancel the whole selection. Motive
behind the irregularities committed also has its relevance. [1096-E)

1.3. In the instant case, as per the report of the CBI whole selection
smacks of malafide and arbitrariness. All norms are said to have been violated •
D with impunity at each stage viz. right from the stage of entertaining
applications, with answer-sheets while in the custody of Chairman, in holding
typing test, in interview and in the end while preparing final result. In such
circumstances it may not be possible to pick out or choose any few persons
in respect of whom alone the selection could be cancelled and their services
E in pursuance thereof could be terminated. The illegality and irregularity are
so inter-mixed with the whole process of the selection that it becomes
impossible to sort ont right from the wrong or vice vena The result of such
a selection cannot be relied or acted upon. It is not a case where a question of
misconduct on the part of a candidate is to be gone into but a case where
those who conducted the selection have rendere<. it wholly unacceptable. Guilt
F of those who have been selected is not the question under consideration but
the question is could such selection be acted upon in the matter of public
employment. It is to not of those cases where it may have been possible to
issue any individual notice of misconduct to each selected and seek his
explanation in regard to the large scale widespread and all pervasive illegalities
G and irregularities committed by those who conducted the selection which may
of course possibly be for the benefit of those who have been selected but there
may be a few who may have deserved selection otherwise, but it is difficult to
separate the cases of some of the candidate from the rest even if there may
be some. [1098-C-F)

H Krishna Yuaav v. State of Haryana, [1994) 4 sec 165, relied on.
U.0.1. v. 0. CHAKRADHAR [BRIJESH KUMAR, J.] l 093

Kashi Nath Dikshita v. Union of India, (986] 3 SCC 229 and Mohinder A
Sain Garg v. State of Punjab and Ors., (1991) SCC 662, distinguished .
•
CIVIL APPELLATE JURISDICTION : Civil Appeal No. 1326 of
2002.

From the Judgment and Order dated 18.7.2000 of the Andhra Pradesh B
High Court in C. W.P. No. 4898 of 2000.

Mukul Rohatgi, Additional Solicitor General, P.S. Narasimha, P. Sridhar
and Anil Katiyar for the Appellant.

P.S. Mishra and Anjani Aiyagari for the Respondents.
c
The Judgment of the Court was delivered by

BRIJESH KUMAR, J.

Leave granted. Heard learned counsel for the parties.
D
The appellants, Union of India and others have impugned the judgment
and order dated July 18, 2000 passed by the High Court of Andhra Pradesh,
dismissing their writ petition assailing the order passed by the Central
Administrative Tribunal by which the Tribunal had set aside the termination
of the services of the respondent.
E
The Railway Recruitment Board, Bangalore issued an advertisement
notice 4 of 1995 for recruitment to the posts of Junior Clerk Cum Typist. In
pursuance of the selection held, the respondent was appointed as Junior Clerk
cum Typist on 28.6.1996. After about three years of appointment, a
communication dated 21.4.1999 was received by the respondent from the
Railway administration relevant part of which has been quoted in the order F
passed by the Central Administrative Tribunal. It is re-produced below:-

''Now it has come to notice of Railway Board that RRB Bangalore
has not subjected the candidates to type writing test which was an
essential recruitment besides there being certain serious irregularities G
in the conduct of examination. The Railway Board after considering
the matter totally and taking into account the report of CBI and
serious nature of irregularities in conduct of selection have decided
to cancel the entire panel and to terminate the services of all the
candidates appointed on South Central Railway by giving the notice
as~ru~ H
1094 SUPREME COllRT REPORT~ [2002 J I S.C.R

A The service of the rnspondent was terminated by order dated 18.8.1999. The
respondent preferred a petition before the Central Administrative Tribunal
•
challenging the order of his termination among other on the ground that the
respondent was not responsible for any kind of irregularity and i11 case it was
committed by the Railway Recruitment Board he could not be held responsible
B for it. It could not be said that each and every selected candidate was involved
in it, if at all. Hence, a decision to terminate the services of all the .ippointees
or to cancel the >election was bad. The other ground of challenge is that
proper show cause notice should have been individually issued to each selectee
so as to enable him to submit his proper explanation in respect of the a!le6ations
of irregularities, in absence of such a notice the termination order is bad
C being in violation of principles of natural justice.

The Central Administrative Tribunal while deciding the case held that
merely saying that serious irregularities were committed :n conducting the
selection or that typing test was not held, such general allegations could not
be enough to take a decision to cancel the whole selection. It is also observed
D that the show cause notice which was issued is silent about any irregularity
in the selection which could be attributable to the applicant. rherefore the
show cause notice was inadequate and incomplete. It .1as further been observcti
that the report of the CBI cannot be the only refuge for cancellation of the
selection, but its contents should have been brought to the knowledge of
E applicant in a concise form to enable him to give a proper reply but it was
not done by the administration. Thus in absence of proper notice and
opportunity to the candidate, the order of termination of the applicant stands
vitiated. fhe Tribunal also observed that the CBI r~port was also not plact:d
before it. With the above findings the termination order was sd aside providing
that proceedings could be initiated de novo by ssuing fresh show cause
F notice in the light of the observations made in the judgment.

The writ petition preferred by the appellant against the order of the
Central Administrative Tribunal was dismissed as indicated earlier. The
judgment of the High Court in the writ p~tition is also based mainly on the
G ground of violation of principles of natural justtce and that the notice which
was given to the candidates was vague which amounted to no notice at all.
Hence, no proper cause could be shown against such a notice.

Shri Mukul Rohtagi, learned Additional Solicitor General appearing on
behalf of the appellants has placed reliance on a decision reported in (I 994]
H 4 sec 165 Krish11a tadav V. State of Haryana and on the ba~is of the same
U.U.I. v. 0. CHAKRADHAR IBRJJESH KUMAR, J.] I 095
it has been vehemently urged that in a case where irregularity committed in A
the process of selection is all pervasive vitiating the whole selection in that
event it would not be required that each selectee be served with individual
show cause notice. In such circumstances it will be open to cancel the whole
selection. Shri P.S. Misra. learned senior counsel appearing for the respondent
has, however, urged that it was necessary to make known to the respondent B
appointee about the exact and precise nature of the irregularity committed as
well as misconduct if any attributable to him so that it could be possible for
him to have explained the position which has otherwise adversely affected
the respondent. It is further submitted that the order of termination is in clear
violation of Article 311 of the Constitution as on the basis of show cause
notice as issued, it was incumbent upon the appellant to hold an enquiry and C
then alone pass an order of punishment, not otherwise. It is also submitted
that according to the report of the CBI the beneficiaries of the irregularities
could be identified and the persons against whom action has been
recommended are named therein. Name of the respondent-appointee is not
amongst those against whom action has been recommended. The submission
is that only those who got benefit of the irregularities if any, committed by D
the Railway Recruitment Board, should have been issued notices and action
• could be taken against them. All others, including the respondent who had
nothing to do with any kind of irregularity and who have been selected on
their own merit . their services were not liable to be terminated.
E
Before we proceed further, it will be appropriate to peruse the decisions
relied upon by the parties. In the case of Krishna Yadav (supra), the allegations
of favouritism and arbitrariness in holding the selection for the post of Taxation
Inspectors by Subordinate Selection Board were made. Those candidates whose
performance was excellent were not selected. An inquiry was ordered by the
Supreme Court to be held by the CBI. The report revea!ed acts of favouritism, F
selection without interview even on the basis of fake or ghost interview,
tampering with the records and fabrication of documents etc. In such
circumstances it was held that entire selection was vitiated even in respect of
those who had arready been appointed and had been working for a past few
years. It was further observed individual cases of innocence have no relevance G
in such circumstances. So far the respondent is concerned, reliance has been
placed on a dt:cision reported in [ 1986) 3 SCC 229 Kashi Nath Dikshita v.
Union of India and Ors. On the proposition that a case where reasonable
opportunity of hearing is denied to a delinquent, it vitiates the inquiry and
renders the order of punishment invalid. There cannot be any doubt about the
proposition of law as propounded in the above noted case. Reasonable and H
1096 '>l 'PREME COLRl REPORTS [2002] I S.C.R.

A adequate opportunity of hearing has always to be provided to a delinquent
officer against whom disciplinary proceedings have been initiated by the
Department. The case however, pertains to an inquiry against an individual
.
officer based on allegations of misconduct on his part. Another case to which
our attention has been drawn is reported in [ 1991] I SCC 662 Mohinder Sain
Garg v. State of Punjab and Ors. In this case 1200 candidates were called
B for the interview; for filling up 54 posts. It was not though a proper course
but held that it would not vitiate the selection, more particularly when it
could not be said to be tainted with mala fide or ill motive. It was also held
that allocation of 25% of total marks for viva voce test was excessive and the
selection was found to have been vitiated but it was found that whole selection
C was not necessary to be cancelled as those who had joined long before in •
pursuance to such a selection had not been impleaded as parties before the
High Court and also in view of the fact that unsuccessful candidates who had
chances of being selected if the marks allocated for the viva voce test had
been reduced, were directed to be appointed to the posts which were kept
·vacant for them by means of interim orders of the Court.
D
Jn our view the nature and the extent of illegalities and irregularities
committed in conducting a selection will have to be scrutinized in each case •
so as to come to a conclu~ion about future course of action to be adopted in
the matter. If the mischief played is no widespread and all pervasive, affecting
E the result. so as to make it difficult to pick out the persons who have been
unlawfully benefited or wrongfully deprived of their selection, in such cases
it will neither be possible nor necessary to issue individual show cause notices
to each selectee. The only way out would be to cancel the whole selection.
Motive behind the irregularities committed also has its rekvance.

F The copy of the report of the CBI has been made available to the Court
by the learned Additional Solicitor General and the same was served upon
learned counsel for the respondent earlier. To find out the position in the
present case, we may have to scrutinize the report of the CBI.
-
G It first indicates that Railway Recruitment Board, Bangalore has not
laid down any set procedure for holding of selection. The Chairman engages
a printer for printing of the question paper and computer firms are given the
job of scrutinizing the applications. The examination is conducted at different
centres and answer-sheets are sealed and put in boxes in custody of the
Chairman in his room. The answer-sheets are given to the computer firm for
H evaluation. The Board carries on a manual random check of the answer-
U.0.1. v. 0. CHAKRADHAR [BRIJESH KUMAR, J.) 1097
sheets, and depending upon the result, further call letters are prepared by the A
, computer firm. Since it was a recruitment for the post of Junior Clerk-cum-
Typist, a candidate was required to have a typing speed of 30 words per
minute in English or 25 words per minute in Hindi. As per relevant Circular
the typing test is to be conducted after the written test and those who qualify
in the typing test also, they alone are to be called for final interview. In the
present case, however, according to the report the candidates during the
B
course of their personal interview were required to give typing test before the
members of the Interview Board within the time limit set for the purpose. No
separate marks were awarded for typing nor the typing sheets have been
preserved by the Board. No candidate was qualified or disqualified on the
basis of the typing test. About 100 answer-sheets did not bear the signatures c
of Supervisor/Assistant Supervisor in the column provided for the purpose.
It however, bore the signatures of the invigilator but none from the said
candidates is reported to be selected. According to the report, on scrutiny of
.__....,..
.
answer-sheets of 109 selected candidates, a clear difference of hand-writing
was noticed in many answer-sheets. Out of these answer-sheets 14 were
particularly taken out for the purpose of investigation. According to the report, D
answer-sheet packets were stealthily opened and the answers were filled up
.. in the blank space left by the examinees. This happened during the period the
bags of the answer-sheets were in the custody of the Chairman. So far as the
interview is concerned, it is reported that the two Boards constituted for the
interview did not have technical personnel as its member as per requirement. E
Each member was required to award marks to the candidate in the individual
assessment sheets provided to them and :average was to be worked out but
no average was worked out. The column for interview marks was later on
filled up as per wishes of the Chairman and Member-Secretary of the Board
and signatures of the non official members were obtained on the summary
sheet later on. F

It is mentioned in the report that huge amount of money was taken for
selecting the candidates but none is coming forward to indicate as to who and
how much one paid for it for fear of being in trouble. It is further reported
that non official Chairman of the Board made payment ;:if printing of the
G
examination paper etc. not to any firm but to one Gaja Raja Yadav. It may
<I also be mentioned that according to the report a large number of applications
were missing and postal orders of the missing applications were encashed
and misappropriated and even before the closing date of receiving the
applications, it started sending applications to the computer firm for their
scrutiny. The C.B.I. has named five persons as accused in the report namely H
1098 SUPREME COURT REPORTS (2002] I S. C.R.

A the Chairman of the Railway Recruitment Board. Bangalore, who is a-non-
official, the Member-Secretary of the Board, an officer of the Railways, one ...
Shri Hanumanth Bhaiya, a Senior Clerk of the Railway Recruitment Board
and Gaja Raja Yadav, the private person to whom payment had been made ~
for printing of the question paper etc.

B As per the report of the CBI whole selection smacks of mala fide and
arbitrariness. All norms are said to have been violated with impunity at each
stage viz. right from the stage of entertaining applications, with answer-sheets
while in the custody of Chairman, in holding typing test, in interview and in
the end while preparing final resul.t. In such circumstances it may not be
possible to pick out or choose any few persons in respect of whom alone the
c selection could be cancelled and their services in pursuance thereof could be
terminated. The illegality and irregularity are so inter-mixed with the whole
process of the selection that it becomes impossible to sort out right from the

D
wrong or vice versa. The result of such a selection cannot be relied or acted
upon. It is not a case where a question of misconduct on the part of a
candidate is to be gone into but a case where those who conducted the
selection have rendered it wholly unacceptable. Guilt of those who have been
selected is not the question under consideration but the question is could such
-
•
selection be acted upon in the matter of public employment? We are therefore
of the view that it is not one of those cases where it may have been possible
to issue any individual notice of misconduct to each selectee and seek his
E explanation in regard to the large scale v. idespread and all pervasive illegalities
and irregularities committed by those who conducted the sdection which
may of course possibly be for the benefit of those who have been selected
but there may be a few who may have deserved selection otherwise but it is
difficult to separate the cases of some of the candidates from the rest even
F if there may be some. The decision in the case of Krishna Yadav (supra)
applies to the facts of the present case. The Railway Board's decision to
cancel the selection cannot be faulted with. The appeal therefore deserve to
be allowed.

In the result, the appeal is allowed and the orders passed by the Tribunal
G and the High Court are set aside and the order of termination of the services
of the respondent is upheld. The copy of the CBI report has been placed on
record. The administration shall do well in taking action pursuing the matter
in the light of the report of the CBI, so as to bring it to a logical conclusion.
"
There wou Id be no order as to costs.
H S.V.K. Appeal Allowed.