IN THE SUPREME COURT OF INDIA CIVIL APPELLATE JURISDICTION (Under Article 136 of the Constitution of India read with Order XXI Rule 3(1) of the Supreme Court Rules, 2013)
SPECIAL LEAVE PETITION (CIVIL) NO. OF 2019 [Against the impugned final order dated 17.02.2020 passed in W.P. No. 51684 of 2019 (GM-RES) PIL by the Division Bench of the Hon’ble High Court of Karnataka at Bengaluru]
IN THE MATTER OF :
SAMAJ PARIVARTHANA SAMUDAYA ...PETITIONER VERSUS GOVERNMENT OF KARNATAKA & ORS. ...RESPONDENTS
PAPER – BOOK [For Index Kindly See Inside]
ADVOCATE FOR PETITIONER: PAI AMIT
Filed on 10.06.2020
RECORD OF PROCEEDINGS
Sr. No. Date of Record of Proceedings Pages
INDEX
Sl. Particulars of Document Page No. part of which it Remarks No. belongs Part I Part II (Contents (Contents of paper of file Book) along) (i) (ii) (iii) (iv) ( v) 1. Court Fee 2. O/R on Limitation A A 3. Listing Proforma A1-A2 A1-A2 4. Cover Page of Paper Book A-3 5. Index of Record of Proceedings A-4 6. Limitation Report prepared by the A-5 Registry 7. Defect List A-6 8. Note Sheet NS1 to … 9. List of Dates B – Q 10. Impugned Order A copy of the impugned final order dated 17.02.2020 passed in W.P. 1-25 No. 51684 of 2019 (GM-RES) PIL by the Division Bench of the Hon’ble High Court of Karnataka at Bengaluru
11. Petition seeking Special leave to appeal along with affidavit. 26-42
12. Appendix Section 3 of the Karnataka 43 Lokayukta Act, 1984
13. Annexure P/1 A true copy of the letter No. Si Aa 44 Su E 168 SLU 2017 dated 24.07.2018 by the Chief Minister to the Chief Justice.
14. Annexure P/2 A true copy of the letter dated 45 14.09.2018 by the Chief Justice to the Chief Minister.
15. Annexure P/3 A true copy of the letter No. 46-47 PSCM/742/2019 dated 20.06.2019 by the Chief Minister to the Chief Justice.
16. Annexure P/4 A true copy of the letter dated 48 22.06.2019 by the Chief Justice to the Chief Minister.
17. Annexure P/5 A true copy of the letter No. PSCM/1447/2019 dated 12.11.2019 49-50 of the Chief Minister to the Chief Justice.
18. Annexure P/6 A true copy of the letter dated 51-52 14.11.2019 by the Chief Justice to the Chief Minister.
19. Annexure P/7 A true copy of the Notification No. 53-54 DPAR 168 SLU 2017 dated 20.11.2019.
20. Annexure P/8 A true copy of the communication 55-57 SPIO No. 665/2019 dated 30.11.2019
21. Annexure P/9 A true copy of the Writ Petition No. 58-76 51684 of 2019 [GM-RES] PIL dated 02.12.2019 filed before the Hon’ble High Court of Karnataka at Bengaluru.
22. Annexure P/10 A true copy of the Statement of 77-94 Objections dated 31.01.2020 filed by Respondents No. 1 and 2.
23. F/M 24. V/A 95
A
IN THE SUPREME COURT OF INDIA CIVIL APPELLATE JURISDICTION SPECIAL LEAVE PETITION (CIVIL) No. OF 2020
IN THE MATTER OF :
SAMAJ PARIVARTHANA SAMUDAYA ...PETITIONER VERSUS GOVERNMENT OF KARNATAKA & ORS. ...RESPONDENTS
OFFICE REPORT ON LIMITATION
1. The Petition is/ are within time.
2. The Petition is barred by time and there is a delay of _____ days in
filing the same against order dated 17.02.2020 an application for
condonation of ____ days delay has been filed.
3. There is delay of __ days in refilling the petition and an application for
condonation of __days delay in refilling has been filed.
NEW DELHI SECTION OFFICER DATED: 10.06.2020
A-1
PROFORMA FOR FIRST LISTING SECTION: II-A The case pertains to (Please tick/check the correct box): Central Act: (Title) : The Constitution of India Section: Article 226 Central Rule: (Title): N.A. Rule No (s): 27 State Act (Title): The Karnataka Lokayukta Act, 1984 Section: Section 3 State Rule: (Title): N.A. Rule No (s): N.A. Impugned Interim Order: N.A. Impugned final Order/Decree: 17.02.2020 High Court: The Hon’ble High Court of Karnataka at Bengaluru Names of Judges: Hon’ble Mr. Justice Ravi Malimath & Hon’ble Mr. Justice M.I. Arun 1. Nature of matter: CIVIL 2. (a) Petitioner/appellant No. 1: SAMAJ PARIVARTHANA SAMUDAYA (b) e-mail ID: N.A. (c) Mobile phone number: N. A. 3. (a) Respondent No.1: GOVERNMENT OF KARNATAKA & ORS. (b) e-mail ID: Not Known (c) Mobile phone number: Not Known 4. (a) Main category classification: (b) Sub classification: 5. Not to be listed before: N. A. 6. (A) Similar/Pending matter: No similar pending case. (B) Similar decided cases with citation: No similar cases have been decided. 7. Criminal Matters: NO a) Whether accused/convict has surrendered: N/A b) FIR No. – N/A c) Police Station: N/A d) Sentence Awarded: N/A e) Period of Sentence Undergone including Period of Detention/Custody Undergone: N/A 8. Land Acquisition Matters: N.A. a) Date of Section 4 notification: N. A. b) Date of Section 6 notification: N. A. c) Date of Section 17 notification: N. A. 9. Tax Matters: State the tax effect: N. A. 10. Special Category (first petitioner/appellant only): N.A. Senior citizen>65 years: N.A. SC/ST: N.A. WOMAN: N.A. Disabled Legal Aid case: N.A. In custody: N.A. 11. Vehicle Number (in case of Motor Accident Claim matters): N. A.
PAI AMIT AOR for petitioner(s)/appellants(s) Date: 10.06.2020 AOR CODE: 2649 [email protected]
B
SYNOPSIS The present petition seeking Special Leave to Appeal under Article
136 of the Constitution is being filed against the final order dated
17.02.2020 passed in W.P. No. 51684 of 2019 (GM-RES) PIL by the
Division Bench of the Hon’ble High Court of Karnataka at Bengaluru, by which the writ petition in public interest in the nature of quo warranto and seeking the quashing of Government Order dated 20.11.2019 appointed
Respondent No. 4 as Upa-Lokayukata, was rejected by the Division Bench of the Hon’ble High Court.
The Petitioner is a society registered under the Karnataka Societies
Registration Act, 1960, and has been engaged in various activities in the realm of public life, and works in close co-operation with several other voluntary organisations, networks and movements to promote actions with people’s participation on a broader scale towards social transformation and to bring about larger collective impacts on the governmental policies, deliberated legislations and programmes for human-well being. The
Petitioner is also been involved in several activities for the betterment of society in the protection of the natural resources, and also engaged in fighting corruption in public life. The Petitioner has also filed several writ petitions in public interest in this Hon’ble Court and the Hon’ble High
Court, in furtherance of the activities mentioned above. Respondents No. 1 and 2 are the Government of the State of Karnataka, and the Respondent C
No. 3 is the Secretariat of the Hon’ble Governor of the State. Respondent
No. 4 is a former Judge of the Hon’ble High Court of the Karnataka, whose appointment as Upa-Lokayukta by Respondents No. 1 to 3 has been challenged in the present proceedings.
The principal question before this Hon’ble Court in the present proceedings is what would constitute “meaningful and effective consultation” under Section 3(2)(b) of the Karnataka Lokayukta Act, 1984, and whether the non-supply of relevant material to the Chief Justice, i.e. one of the consultees, would be contrary to the principles laid down by this
Hon’ble Court.
It is submitted that this Hon’ble Court, in the case of Justice
Chandrashekaraiah (Retd.) v. Janekere C. Krishna, (2013) 3 SCC 117, while categorically holding that the view of the Chief Justice did not have any primacy of opinion, however, held (main opinion by K.S.P.
Radhakrishnan, J.):
“77. The Chief Minister is legally obliged to consul the Chief Justice of the High Court and other four consultees, which is a mandatory requirement. The consultation must be meaningful and effective and mere eliciting the views or calling for recommendations would not suffice. The consultees can suggest various names from the source stipulated in the statute and those names have to be discussed either in a meeting to be convened by the Chief Minister of the State for that purpose or by way of circulation. The Chief Minister, if proposes to suggest or advise any D
name from the source earmarked in the statute that must also be made available to the consultees so that they can also express their views on the name or names suggested by the Chief Minister. After due deliberations and making meaningful consultation, the Chief Minister of the State is free to advise a name which has come up for consideration among the consultees to the Governor of the State. The advice tendered by the Chief Minister will have primacy and not that of the consultees including the Chief Justice of the High Court. 78. …The Chief Minister, it may be noted, cannot advise a name from that source without making a meaningful and effective consultation after disclosing the relevant materials. This, in my view, is a sufficient safeguard against arbitrary selection and advice. Further, as already noticed, the duties and functions of the Lokayukta or Upa-Lokayukta are investigative in nature and their orders as such cannot be executed. In such situation, the legislature, in its wisdom, felt that no primacy need be attached to the views of the consultees including the Chief Justice but on the advice of the Chief Minister.” In a concurring judgment, it was held (concurring opinion of Madan B.
Lokur, J.):
138. I do not think it necessary to circumscribe the manner of consultation. The Chief Minister may consult the other constitutional authorities collectively or in groups or even individually – this hardly matters as long as there is meaningful and effective consultation. Similarly, I do not think it is necessary to restrict the mode of consultation the mode of consultation. It may be in a meeting or through correspondence. Today, with available E
technology, consultation may even be through a video link. The form of consultation or the venue of consultation is not important – what is important is the substance of the consultation. The matter has to be looked at programmatically and not semantically. It is important, as held by the High Court, that no constitutional authority is kept in the dark about the name of any candidate under consideration and each constitutional authority mentioned in Section 3(2)(b) of the Act must know the recommendation made by one another for appointment as an Upa-Lokayukta. In addition, they must have before them (as Fazal Ali, J. concluded in S.P. Gupta) full and identical facts. As long as these basic requirements are met, “consultation” could be said to have taken place.” FACTUAL MATRIX IN THE PRESENT CASE
The post of Upa-Lokayukta of the State of Karnataka fell vacant on
01.03.2018 with the retirement of Justice (Retd.) Subhash B. Adi.
Thereafter, on 24.07.2018, the then Chief Minister of the State elicited the views of the then Chief Justice of the High Court, and sought the suggestion of an eligible name. In response, the Chief Justice of the High
Court of Karnataka, vide letter dated 14.09.2018, recommended the name of Justice (Retd.) A.N. Venugopala Gowda. However, there was no action on the same. Subsequently, more than 9 months after the recommendation made by the then Chief Justice, the then Chief Minister, vide letter dated
20.06.2019, against sought the recommendation of the newly appointed
Chief Justice. Accordingly, on 22.06.2019, the Chief Justice reiterated the recommendation made by his predecessor after perusal of the relevant F
materials. However, vide letter dated 12.11.2019, the Chief Minister informed the Chief Justice that upon consulting the other four authorities, it was recommended that Respondent No. 4 be appointed, and that the same was placed for consideration. In response, vide letter dated 14.11.2019, the
Chief Justice informed the Chief Minister as follows:
“There is no material placed before me by the State Government warranting change of the recommendation earlier made by me and my learned predecessor. Hence, I maintain the recommendations. Therefore, I am unable to concur with the recommendation made known to me by your aforesaid letter.” Subsequently, by the notification impugned before the Hon’ble High Court as also in the present proceeding, Respondents No. 1 to 3 were pleased to appoint Respondent No. 4 as Upa-Lokayukta.
This action of the Respondents No. 1 to 3 appointing Respondent
No. 4 was challenged by the Petitioner before the Hon’ble High Court, in a writ petition in public interest, seeking the following reliefs:
“The petitioner prays for issuance of appropriate writ or order: (i) declaring the respondent 4 has no authority to hold & continue to hold the public office of the Karnataka Upa- Lokayukta, under the Karnataka Lokayukta Act, 1984; (ii) quashing the order bearing no. DPAR 168 SLU 2017 dated 20:11:2019 passed by the Governor of Karnataka, appointing 4th respondent as Karnataka Upa-Lokayukta, copy produced and marked as Annexure – G – AND G
(iii) For such other order or orders as this Hon’ble Court deems fit to grant under the circumstances of the case in the interest of justice and equity.” By the impugned Order, the Hon’ble High Court was pleased to reject the writ petition on the ground that sufficient consultation had taken place, and that all the facts were placed before the Chief Justice before the appointment of Respondent No. 4 was made, and that amounted to sufficient consultation. Being aggrieved by this Order of the Hon’ble High
Court, the present special leave petition is being preferred.
NO EFFECTIVE CONSULTATION
That, as is borne out of the record, on 24.07.2018, the Chief
Minister elicited the suggestion of a suitable name from the Chief Justice of the High Court. Accordingly, the Chief Justice recommended the name of Justice (Retd.) A.N. Venugopala Gowda. More than 9 months after the recommendation made by the then Chief Justice, the then Chief Minister, vide letter dated 20.06.2019, against sought the recommendation of the newly appointed Chief Justice. Accordingly, on 22.06.2019, the Chief
Justice reiterated the recommendation made by his predecessor after perusal of the relevant materials. However, vide letter dated 12.11.2019, the Chief Minister informed the Chief Justice that upon consulting the other four authorities, it was recommended that Respondent No. 4 be appointed, and that the same was placed for consideration. In response, H
vide letter dated 14.11.2019, the Chief Justice informed the Chief Minister as follows:
“There is no material placed before me by the State Government warranting change of the recommendation earlier made by me and my learned predecessor. Hence, I maintain the recommendations. Therefore, I am unable to concur with the recommendation made known to me by your aforesaid letter.” Subsequently, by the notification impugned before the Hon’ble High Court as also in the present proceeding, Respondents No. 1 to 3 were pleased to appoint Respondent No. 4 as Upa-Lokayukta.
Further, as is borne by the record, there was no effective consultation by the Chief Minister, as mentioned in Section 3(2)(b) of the Karnataka
Lokayukta Act, 1984, namely, Chief Justice, the Chairperson of the
Karnataka Legislative Council, the Leader of Opposition in the Karnataka
Legislative Council and the Leader of Opposition in the Karnataka
Legislative Assembly. As is borne out of the record, the Chief Minister has only communicated the choice made or the name recommended. However, there has been no discussion or consideration of any form between the consultees in regard to the appointment of Respondent No. 4. It is further submitted that as is evident from the letter dated 14.11.2019 by the Chief
Justice to the Chief Minister, no material was also placed before the Chief
Justice warranting any change of recommendations. It is submitted that in I
the absence of any material, the consultation cannot be said to be
“meaningful and effective” as mandated by Section 3(2)(b) of the
Karnataka Lokayukta Act, 1984. Further, it is submitted, this Hon’ble
Court has clearly mandated that names for the purpose of appointment ought to be discussed/deliberated upon, although the manner of discussion/deliberation is not spelt out. It is submitted that mere information of the name to the consultees cannot be considered to be within the realm of discussion or deliberation, and therefore running afoul of the sacrosanct principle of “meaningful and effective consultation” as mandated by Section 3(2)(b) of the Karnataka Lokayukta Act, 1984.
NO MATERIAL MADE AVAILABLE
It is respectfully submitted that the Hon’ble High Court in the judgment impugned herein has erred in noting that whether there was any material or not to change the earlier recommendation, had no nexus with the recommendation made by the remaining consultees. It is submitted that any recommendation made or any name. It is respectfully submitted that this reasoning is erroneous. Without any material placed before even one of the consultees, consultation as mandated by the Karnataka Lokayukta
Act, 1984 would be meaningless. It is submitted that this Hon’ble Court in
Justice Chandrashekaraiah (Retd.) has held the “full and identical facts” must be placed before each consultee, i.e. to say that all the material must J
be placed before all the consultees. It is submitted, admittedly, no material in regard to the appointment was placed before Respondent No. 4 was placed before the Chief Justice, and therefore, it cannot be said that the consultation was effective and meaningful. Further, it is submitted, this
Hon’ble Court has clearly mandated that names for the purpose of appointment ought to be discussed/deliberated upon, although the manner of discussion/deliberation is not spelt out. It is submitted that mere information of the name to the consultees without placing requisite material on record cannot be considered to be within the realm of discussion or deliberation, and therefore running afoul of the sacrosanct principle of “meaningful and effective consultation” as mandated by
Section 3(2)(b) of the Karnataka Lokayukta Act, 1984. Further, it is submitted that the Hon’ble High Court erred in noting that merely because the Chief Justice did not mention the consultation to be ineffective, the same was to the satisfaction of the Chief Justice. It is submitted that in exercise of the powers of judicial review, the Hon’ble High Court was not called upon to examine whether the Chief Justice was satisfied with the consultation, but whether the absence of material being placed before the
Chief Justice, and the non-existence of proper discussion/deliberations between the Chief Minister and the consultees constituted “meaningful and effective consultation” as mandated by Section 3(2)(b) of the Karnataka K
Lokayukta Act, 1984, and as laid down by this Hon’ble Court in the case of Justice Chandrashekaraiah (Retd.).
Hence the present petition seeking special leave to appeal under
Article 136 of the Constitution of India.
LIST OF DATES 15.01.1986 The Karnataka Lokayukta Act, 1984 came into force
following the recommendations of the Administrative
Reforms Commission to improve the standards of public
administration and to enquire into complaints of corruption,
favouritism, and official indiscipline administrative
machinery. The Preamble to the Act in furtherance of the
aforementioned object in extracted hereinbelow:
“An Act to make provisions for the appointment and functions of certain authorities for making enquiries into administrative action relatable to matters specified in List II or List III of the Seventh Schedule to the Constitution, taken by or on behalf of the Government of Karnataka or certain public authorities in the State of Karnataka (including any omission or commission in connection with or arising out of such action) in certain cases and for matters connected therewith or ancillary thereto. Whereas it is expedient to make provision for the appointment and functions of certain authorities for making such enquiries into administrative action L
relatable to matters specified in List II or List III of the Seventh Schedule to the Constitution, taken by or on behalf of the Government of Karnataka or certain public authorities in the State of Karnataka (including any omission or commission in connection with or arising out of such action) in certain cases and for matters connected therewith or ancillary thereto:” Section 3 of the said Act deals with the appointment of the
Lokayukta and the Upalokayuktas in the State. The Act has
been amended from time to time, i.e. in 1986, 1988, 1991,
2000 and 2010. Appointments have been made from time to
time as Lokayukta or Upa-Lokayukta by the Respondents
No. 1 to 3.
01.03.2019 One of the Upalokayuktas, Justice (Retd.) Shri. Subhash B.
Adi retired.
24.07.2018 The then Chief Minister of the State, vide letter dated
24.07.2018, addressed to Hon’ble the Chief Justice of
Karnataka, sought a suggestion of an eligible name for the
appointment of Karnataka Upalokayukta. A true copy of the
letter No. Si Aa Su E 168 SLU 2017 dated 24.07.2018 by the
Chief Minister to the Chief Justice is annexed herewith and
marked as Annexure P/1 [Page 44]. M
14.09.2018 In response to the said letter, Hon’ble the Chief Justice of
Karnataka, vide letter dated 14.09.2018 addressed to then
Chief Minister, recommended the name of Justice (Retd.)
A.N. Venugopala Gowda, former Judge of the Karnataka
High Court, along with the Curriculum Vitae. A true copy of
the letter dated 14.09.2018 by the Chief Justice to the Chief
Minister is annexed herewith and marked as Annexure P/2
[Page 45].
10.05.2019 Thereafter, upon the elevation of the then Chief Justice of
the Karnataka to this Hon’ble Court, a new Hon’ble the
Chief Justice was appointed to the Karnataka High Court.
20.06.2019 The then Chief Minister vide letter dated 20.06.2019
addressed to Hon’ble the Chief Justice sought a suggestion
of an eligible name for the appointment of Karnataka
Upalokayukta. It is relevant to note that the Chief Minister
also informed Hon’ble the Chief Justice that the
recommendation made by his predecessor, i.e. that of Justice
(Retd.) A.N. Venugopala Gowda. A true copy of the letter
No. PSCM/742/2019 dated 20.06.2019 by the Chief
Minister to the Chief Justice is annexed herewith and
marked as Annexure P/3 [Pages 46 to 47]. N
22.06.2019 Hon’ble the Chief Justice of Karnataka, in response to the
letter of the Chief Minister, vide letter dated 22.06.2019,
reiterated the recommendations of his predecessor, after
perusing the records and considering the relevant material. A
true copy of the letter dated 22.06.2019 by the Chief Justice
to the Chief Minister is annexed herewith and marked as
Annexure P/4 [Page 48].
12.11.2019 Vide letter dated 12.11.2019, the Chief Minister of the State
of Karnataka, informed Hon’ble the Chief Justice that the
other four consultees, namely the Chairman of the Karnataka
Legislative Council, the Speaker of the Karnataka
Assembly, the Leader of the Opposition of the Karnataka
Legislative Council and the Leader of the Opposition in the
Karnataka Legislative Assembly had recommended
Respondent No. 4 to be appointed to the post of
Upalokayukta, and stated that the same was placed before
the Chief Justice for consideration. A true copy of the letter
No. PSCM/1447/2019 dated 12.11.2019 of the Chief
Minister to the Chief Justice is annexed herewith and
marked as Annexure P/5 [Pages 49 to 50].
14.11.2019 In reply to the aforementioned letter, Hon’ble the Chief O
Justice of Karnataka, vide letter dated 14.11.2019, informed
the Chief Minister that there was no material placed by the
State Government before him warranting the change of
recommendation, and hence was unable to concur with the
recommendation made. A true copy of the letter dated
14.11.2019 by the Chief Justice to the Chief Minister is
annexed herewith and marked as Annexure P/6 [Pages 51
to 52].
20.11.2019 By virtue of notification No. DPAR 168 SLU 2017 dated
20.11.2019, Respondent No. 4 was appointed Respondent
No. 4 – Shri. Bhimanagouda Sanganagouda Patil, former
Judge of the Hon’ble High Court of Karnataka as the
Upalokayukta of the Karnataka State. A true copy of the
Notification No. DPAR 168 SLU 2017 dated 20.11.2019
issued by the Respondent No. 1 is annexed herewith and
marked as Annexure P/7 [Pages 53 to 54].
21.11.2019 The Petitioner, through its office bearer, Dr. K. Shivram,
sought certain information form the Public Information
Office, High Court of Karnataka under the Right to
Information Act, 2005.
30.11.2019 In response to the aforesaid, on 30.11.2019, the Public P
Information Office, High Court of Karnataka furnished the
information aforementioned Dr. K. Shivram by
communication being SPIO No. 665/2019 dated 30.11.2019.
A true copy of the communication SPIO No. 665/2019 dated
30.11.2019 is annexed herewith and marked as Annexure
P/8 [Pages 55 to 57].
02.12.2019 The Petitioner filed a writ petition in public interest seeking
a declaration that Respondent No. 4 had no authority hold
the public office of Upa-Lokayukta of Karnataka and
seeking the quashing of notification dated 20.11.2019 issued
by the Hon’ble Governor of Karnataka, and the same came
to be numbered as Writ Petition No. 51684 of 2019 [GM-
RES] PIL dated 02.12.2019, primarily on the ground that
there was no effective consultation on the appointment of
Respondent No. 4 with the Chief Justice, as mandated by
this Hon’ble Court in the case of Justice Chandrashekaraiah
(Retd.) v. Janekere C. Krishna, (2013) 3 SCC 117.
A true copy of the Writ Petition No. 51684 of 2019 [GM-
RES] PIL dated 02.12.2019 filed before the Hon’ble High
Court of Karnataka at Bengaluru is annexed herewith and
marked as Annexure P/9 [Pages 58 to 76]. Q
31.01.2020 The Respondents No. 1 and 2 filed their Statement of
Objections refuting the averments made in the writ petition.
A true copy of the Statement of Objections dated 31.01.2020
filed by Respondents No. 1 and 2 are annexed herewith and
marked as Annexure P/10 [Pages 77 to 94].
17.02.2020 The Division Bench of the Hon’ble High Court, vide the
final Order impugned herein, was pleased to dismiss the writ
petition filed by the Petitioner, holding that the averment
that there was no effective consultation of the Chief Justice
of Karnataka was unfounded.
10.06.2020 Hence the present petition seeking special leave to appeal
under Article 136 of the Constitution of India.
26
IN THE SUPREME COURT OF INDIA CIVIL APPELLATE JURISDICTION SPECIAL LEAVE PETITION (CIVIL) NO. OF 2020 Under Article 136 of the Constitution of India read with Order XXI Rule 3 (1) of the Supreme Court Rules, 2013 [Against the final Order dated 17.02.2020 in W.P. No. 51684 of 2019 (GM-RES) PIL passed by the Division Bench of the Hon’ble High Court of Karnataka at Bengaluru]
IN THE MATTER OF:-
BETWEEN POSITION OF PARTIES
IN THE IN THIS HON’BLE HON’BLE HIGH COURT COURT
1. SAMAJ PARIVARTHANA Petitioner Petitioner SAMUDAYA (A Society Registered under the provisions of the Karnataka Societies Registration Act, 1960), Represented by its Founder President, Shri. S.R. Hiremath, Office at “Ashadeep”, Jayanagar Cross, Saptapur, Dharwad – 580001, Karnataka
AND
1. GOVERNMENT OF KARNATAKA Respondent Contesting Through Chief Secretary, Respondent 27
Government of Karnataka, No. 1 No. 1 Vidhan Soudha, Dr. Ambedkar Road, Bangalore 560001, Karnataka.
2. DEPUTY SECTRETARY TO Respondent Contesting GOVERNMENT OF KARNATAKA, No. 2 Respondent Department of Personal and No. 2 Administrative Reforms (Vigilance), Vidhana Soudha, Bangalore 560001, Karnataka.
3. SECRETERIAT TO THE Respondent Contesting GOVERNOR OF KARNATAKA No. 3 Respondent Through the Secretary to the Governor, No. 3 Raj Bhavan, Raj Bhavan Road, Bangalore 560001, Karnataka.
4. SHRI. BHIMANAGOUDA Respondent Contesting SANGANAGOUDA PATIL, No. 4 Respondent Judge (Retd.), High Court of Karnataka, No. 4 Upa-Lokayukta, Multi Storeyed Building, Dr. Ambedkar Road, Bangalore 560001, Karnataka.
TO, HON'BLE THE CHIEF JUSTICE OF INDIA AND HIS HON’BLE COMPANION JUDGES OF THE HON’BLE SUPREME COURT OF INDIA.
THE HUMBLE PETITION ON BEHALF OF THE PETITIONER ABOVE NAMED
28
MOST RESPECTFULLY SHOWETH:-
1. The present petition seeking Special Leave to Appeal under
Article 136 of the Constitution is being filed against the final
order dated 17.02.2020 passed in W.P. No. 51684 of 2019
(GM-RES) PIL by the Division Bench of the Hon’ble High
Court of Karnataka at Bengaluru, by which the writ petition in
public interest in the nature of quo warranto and seeking the
quashing of Government Order dated 20.11.2019 appointed
Respondent No. 4 as Upa-Lokayukata, was rejected by the
Division Bench of the Hon’ble High Court.
1A. The correct addresses of the parties has been given in the
Memo of Parties herein above.
2. QUESTIONS OF LAW:
The present petition seeking special leave to appeal raises the
following substantial questions of law:
I. What would the scope of “meaningful and effective
consultation” under Section 3(2)(b) of the Karnataka 29
Lokayukta Act, 1984 constitute for the purpose of
appointment of the Upa-Lokayukta.
II. Whether the non-supply of relevant material to the Chief
Justice, i.e. one of the consultees, would be contrary to
the principles laid down by this Hon’ble Court in the case
of Justice Chandrashekaraiah (Retd.) v. Janekere C.
Krishna, (2013) 3 SCC 117.
III. Whether “meaningful and effective consultation” would
require the consultees under the Section 3(2)(b) of the
Karnataka Lokayukta Act, 1984 to have a free exchange
of views.
3. DECLARATION IN TERMS OF RULE 3 (2)
The Petitioner states that no other petition seeking leave to
appeal has been filed against the final order dated 17.02.2020
W.P. No. 51684 of 2019 (GM-RES) PIL by the Division Bench
of the Hon’ble High Court of Karnataka at Bengaluru.
4. DECLARATION IN TERMS OF RULE 5
That Annexures P/1 to P/10 filed along with the present special
leave petition are true and correct copies of the 30
pleadings/documents which formed a part of the record of the
case in the Hon’ble National Commission against whose order
leave to appeal is sought for in the present Petition.
5. GROUNDS:
Being aggrieved by the judgment and final order dated
17.02.2020 W.P. No. 51684 of 2019 (GM-RES) PIL by the
Division Bench of the Hon’ble High Court of Karnataka at
Bengaluru, the Petitioner craves special leave of this Hon’ble
Court to appeal, on, inter alia, the following grounds:
A. That the Respondents No. 1 to 3 did not hold
“meaningful and effective consultation” under Section
3(2)(b) of the Karnataka Lokayukta Act, 1984, as laid
down by this Hon’ble Court in the case of Justice
Chandrashekaraiah (Retd.) v. Janekere C. Krishna,
(2013) 3 SCC 117. In the said case, this Hon’ble Court,
while holding that there was no primacy to the opinion
of the Chief Justice in the matter of appointment of the
Upa-Lokayukta, the consultation had to be “meaningful
and effective”. 31
B. That this Hon’ble Court, in the case of Justice
Chandrashekaraiah (Retd.) v. Janekere C. Krishna,
(2013) 3 SCC 117, while categorically holding that the
view of the Chief Justice did not have any primacy of
opinion, however, held (main opinion by K.S.P.
Radhakrishnan, J.):
“77. The Chief Minister is legally obliged to consul the Chief Justice of the High Court and other four consultees, which is a mandatory requirement. The consultation must be meaningful and effective and mere eliciting the views or calling for recommendations would not suffice. The consultees can suggest various names from the source stipulated in the statute and those names have to be discussed either in a meeting to be convened by the Chief Minister of the State for that purpose or by way of circulation. The Chief Minister, if proposes to suggest or advise any name from the source earmarked in the statute that must also be made available to the consultees so that they can also express their views on the name or names suggested by the Chief Minister. After due deliberations and making meaningful consultation, the Chief Minister of the State is free 32
to advise a name which has come up for consideration among the consultees to the Governor of the State. The advice tendered by the Chief Minister will have primacy and not that of the consultees including the Chief Justice of the High Court. 78. …The Chief Minister, it may be noted, cannot advise a name from that source without making a meaningful and effective consultation after disclosing the relevant materials. This, in my view, is a sufficient safeguard against arbitrary selection and advice. Further, as already noticed, the duties and functions of the Lokayukta or Upa- Lokayukta are investigative in nature and their orders as such cannot be executed. In such situation, the legislature, in its wisdom, felt that no primacy need be attached to the views of the consultees including the Chief Justice but on the advice of the Chief Minister.” In a concurring judgment, it was held (concurring opinion of Madan B. Lokur, J.):
138. I do not think it necessary to circumscribe the manner of consultation. The Chief Minister may consult the other constitutional authorities collectively or in groups or even individually – this hardly matters as long as there is meaningful 33
and effective consultation. Similarly, I do not think it is necessary to restrict the mode of consultation the mode of consultation. It may be in a meeting or through correspondence. Today, with available technology, consultation may even be through a video link. The form of consultation or the venue of consultation is not important – what is important is the substance of the consultation. The matter has to be looked at programmatically and not semantically. It is important, as held by the High Court, that no constitutional authority is kept in the dark about the name of any candidate under consideration and each constitutional authority mentioned in Section 3(2)(b) of the Act must know the recommendation made by one another for appointment as an Upa-Lokayukta. In addition, they must have before them (as Fazal Ali, J. concluded in S.P. Gupta) full and identical facts. As long as these basic requirements are met, “consultation” could be said to have taken place.”
C. That, as is borne out of the record, on 24.07.2018, the
Chief Minister elicited the suggestion of a suitable name
from the Chief Justice of the High Court. Accordingly,
the Chief Justice recommended the name of Justice 34
(Retd.) A.N. Venugopala Gowda. More than 9 months after the recommendation made by the then Chief
Justice, the then Chief Minister, vide letter dated
20.06.2019, against sought the recommendation of the newly appointed Chief Justice. Accordingly, on
22.06.2019, the Chief Justice reiterated the recommendation made by his predecessor after perusal of the relevant materials. However, vide letter dated
12.11.2019, the Chief Minister informed the Chief
Justice that upon consulting the other four authorities, it was recommended that Respondent No. 4 be appointed, and that the same was placed for consideration. In response, vide letter dated 14.11.2019, the Chief Justice informed the Chief Minister as follows:
“There is no material placed before me by the State Government warranting change of the recommendation earlier made by me and my learned predecessor. Hence, I maintain the recommendations. Therefore, I am unable to concur with the recommendation made known to me by your aforesaid letter.” 35
Subsequently, by the notification impugned before the
Hon’ble High Court as also in the present proceeding,
Respondents No. 1 to 3 were pleased to appoint
Respondent No. 4 as Upa-Lokayukta.
D. That, as is borne by the record, there was no effective
consultation by the Chief Minister, as mentioned in
Section 3(2)(b) of the Karnataka Lokayukta Act, 1984,
namely, Chief Justice, the Chairperson of the Karnataka
Legislative Council, the Leader of Opposition in the
Karnataka Legislative Council and the Leader of
Opposition in the Karnataka Legislative Assembly. As is
borne out of the record, the Chief Minister has only
communicated the choice made or the name
recommended. However, there has been no discussion or
consideration of any form between the consultees in
regard to the appointment of Respondent No. 4. It is
further submitted that as is evident from the letter dated
14.11.2019 by the Chief Justice to the Chief Minister, no
material was also placed before the Chief Justice 36
warranting any change of recommendations. It is
submitted that in the absence of any material, the
consultation cannot be said to be “meaningful and
effective” as mandated by Section 3(2)(b) of the
Karnataka Lokayukta Act, 1984. Further, it is submitted,
this Hon’ble Court has clearly mandated that names for
the purpose of appointment ought to be
discussed/deliberated upon, although the manner of
discussion/deliberation is not spelt out. It is submitted
that mere information of the name to the consultees
cannot be considered to be within the realm of
discussion or deliberation, and therefore running afoul of
the sacrosanct principle of “meaningful and effective
consultation” as mandated by Section 3(2)(b) of the
Karnataka Lokayukta Act, 1984.
E. It is respectfully submitted that the Hon’ble High Court
in the judgment impugned herein has erred in noting that
whether there was any material or not to change the
earlier recommendation, had no nexus with the 37 recommendation made by the remaining consultees. It is submitted that any recommendation made or any name.
It is respectfully submitted that this reasoning is erroneous. Without any material placed before even one of the consultees, consultation as mandated by the
Karnataka Lokayukta Act, 1984 would be meaningless.
It is submitted that this Hon’ble Court in Justice
Chandrashekaraiah (Retd.) has held the “full and identical facts” must be placed before each consultee, i.e. to say that all the material must be placed before all the consultees. It is submitted, admittedly, no material in regard to the appointment was placed before Respondent
No. 4 was placed before the Chief Justice, and therefore, it cannot be said that the consultation was effective and meaningful. Further, it is submitted, this Hon’ble Court has clearly mandated that names for the purpose of appointment ought to be discussed/deliberated upon, although the manner of discussion/deliberation is not spelt out. It is submitted that mere information of the name to the consultees without placing requisite material 38
on record cannot be considered to be within the realm of
discussion or deliberation, and therefore running afoul of
the sacrosanct principle of “meaningful and effective
consultation” as mandated by Section 3(2)(b) of the
Karnataka Lokayukta Act, 1984.
F. Further, it is submitted that the Hon’ble High Court erred
in noting that merely because the Chief Justice did not
mention the consultation to be ineffective, the same was
to the satisfaction of the Chief Justice. It is submitted
that in exercise of the powers of judicial review, the
Hon’ble High Court was not called upon to examine
whether the Chief Justice was satisfied with the
consultation, but whether the absence of material being
placed before the Chief Justice, and the non-existence of
proper discussion/deliberations between the Chief
Minister and the consultees constituted “meaningful and
effective consultation” as mandated by Section 3(2)(b)
of the Karnataka Lokayukta Act, 1984, and as laid down 39
by this Hon’ble Court in the case of Justice
Chandrashekaraiah (Retd.).
6. GROUNDS FOR INTERIM RELIEF:
No interim relief is being sought for.
7. MAIN PRAYER:
It is, therefore, most respectfully prayed that this Hon’ble Court
may graciously be pleased to:
a) Grant special leave to appeal against the impugned final
order dated 17.02.2020 passed in W.P. No. 51684 of 2019
(GM-RES) PIL by the Division Bench of the Hon’ble High
Court of Karnataka at Bengaluru; and/or
b) Pass such other order or orders which this Hon'ble Court
may deem fit and proper in the interest of justice.
40
8. PRAYERS FOR INTERIM RELIEF:
No interim relief sought for.
Drawn by: 1. S. Basavaraj, Adv. Filed by: 2. Pai Amit, Adv.
Filed on: 10.06.2020 New Delhi PAI AMIT ADVOCATE FOR THE PETITIONER
41
IN THE SUPREME COURT OF INDIA CIVIL APPELLATE JURISDICTION SPECIAL LEAVE PETITION (C) NO. OF 2020
IN THE MATTER OF :
SAMAJ PARIVARTHANA SAMUDAYA ...PETITIONER VERSUS GOVERNMENT OF KARNATAKA & ...RESPONDENTS ORS.
CERTIFICATE
Certified that the Special Leave Petition is confined only to the pleadings before the Court whose order is challenged and the other documents relied upon in those proceedings. No additional facts, documents or grounds have been taken therein or relied upon in the Special Leave Petition. It is further certified that the copies of the documents/annexures attached to the Special Leave Petition are necessary to answer the grounds urged in the special leave petition for consideration of this Hon'ble Court. This certificate is given on the basis of the instructions given by the Petitioner whose affidavit is filed in support of the Special Leave Petition. FILED BY:
Filed on: 10.06.2020 New Delhi PAI AMIT Advocate for the Petitioner