HARPAL SINGH CHAUHAN AND ORS. ETC. STATE OF U.P. JUNE 15. 1993 [KULDIP SINGH AND N.P. SINGH, J.J.] Code of Criminal Procedure, 1973-Section 24 read witlz Paras 7.06, 7.08 of the Legal Remembrancer Manual-Renewal of term of District Governmellt Counsel Procedure under the Manual- Requiremems under S.24 of tlze Code. Code of Crii~inal Procedure, 1973-Section 24-Public Prosecutor or C Additional PubNr'! Prosecutor-Term of-Extension of renewal-Scope of-Duty of Sessions
Judge and ·District Magistrate- Panel of lawyers-Preparation-Necessity of Co11stit111ion of India, 1950-Article 136-Appeal-Assistant District Gov- ernment Counsfl's names recommended by Sessions Judge for extension of their tenures not recommended by District Magistrate-Rejection of Sessions Judge's recommendO!ion by State-legality of
Civil Services-Assiswnt District Government Counsel's names recom- mended b}• sessions Judge for extension of their tenures not recommended by District Magistrate-Rejection of Sessions Judge's recommendation by S1a1e-Legalil)• of
Code of Criminal Procedure, 197 3-Section 24(4 ~Consideration of suit- ability of a person to the post of District Government Counsel by Distrl~t-~ F Magistrate-Judicial review by Courts-Scope of
C.A. Nos. 722 and 723 of 1993. On 25.2.91 the appellants except appellant No. 3 were appointed as Assistant District Government Counsel (Criminal) in accordance with the G provisions of Section 24 of the Criminal Procedure Code and the Legal Remembrancer Manual. The appellant No.3 was appointed on 13.12.1990. The last date of the tenure .;f the appellants, except appellant No.3, was 31.12.1991, whereas the tenure of appellant No. 3 was upto 13.12.1991. Before SUPRE~1E COURT REPORTS
(1993] 3 S.CR the expiQ· of their terms, the District.Judge, preparing two list<>, 'A' and 'B' recommended the appellants' names for extension of their tenures. List 'A' contained the names of Lawyers (including the appeUants), whose work and conduct was approved for their extension, whereas List 'B' contained the remaining names of the lawyers (including app~llants in C.A. Nos.386, 387/ 1993) who were considered as 'average lawyers'. The Distr·ict ,Judge re- quested the District Magistrate to send his recommendation to the State Government.
c The District Magistrate did not recommend t~e appellants' names as their reputation, professional work, behaviour and conduct was not found in accordance with public interest: On 28.12.1991 the State Government extended the terms of the appel- lants till further orders. Later without assigning an)' reason, the extension recommended by the District ,Judge was rejected by the State Government. The appellants fded writ petitions in the High Court against the Government's decision. The High Court dismissed their writ applications, against which the present appeals were fded by special leave before this Court.
C.A. Nos. 386 & 387 OF 1993. The appeliants' names were included in the List 'B' prepared by the District ,Judge. The State Government rejected the recommendation of the District.Judge, without assigning any reason. The writ petitions preferred by them in the High Court were dismissed. Hence these appeals by special leave. As there was a common is~ue arose in these appeals, same were heard and decided together.
The appellants contended th~t in view of Para 7 .06(2) of the Legal Remembrancer Manual the appointment of any legal practitioner as a District Government Counsel did not automatically come to an end. The State submitted that as Section 24(4) of the Code of Criminal Procedure vested power in the District Magistrate to consider the suitability of the person concerned, for appointment, according to his opinion, as such _there was not much scope of judicial review by Courts, unless a clear case of ~alice on the part of the District Magistrate was made out. '. :·,'.·~
HARPAL SINGH v. STA 1E OF U.P. Allowing the Civil Appeals Nos. 722 and 723of1993 and dismissing the Civil Appeal Nos. 386 and 387of1993, this Court- HELD: 1.1. When sub-section (4) and sub-section (5) of Section 24 of the Code of Criminal Procedure, speak about preparation ofa panel, out of which appointments against the posts of Prosecutor or Additional Public Prosecutor have to be ma<lc, then the Sessions Judge and the District Magistrate arc required to consult.ilid discuss the names of the persons fit to be included in the panel and fui'nclude such names in the panel.
1.2. The expressions "panel of names of persons", do not mean that some names are to be suggested by the Sessions Judge and some comments are to be made, in respect of those names by the District Magistrate, without proper consultation and discussion over such names. The statutory mandate ought to have been complied with by th~ J?istrict Magistrate and the Sessions Judge in its true spirit.
c 1.3. Section 24 of the Cod~·does not speak about the extension or renewal of the terms of the Public Prosecutor or Additional Public PNsecutor. But after the expiry of the term of the appointment of persons concerned, it requires the same statutory exercise, in which either new persons are appointed or those who have h~l•.'!working as Public Prosecutor or Additional Public Prosecutor, are again•ppointed by the State Government, for a fresh term. The procedure prescribed .in the Manual – to the extent – it is not in conflict with the provisions of Section 24, shall be deemed to be supplementing the statutory provisions. But merel)' because there is a provision for extension or renewal of the term, the same cannot be d'ilimed as a matter of right. 1.4. While exercising the power of judicial review eveq)n respect of appointment of members of the legal profession as District 'Government Counsel, the Court can examine whether there was any infirmity in the "decision making process". Of courSf, while doing so, the Court cannot substitute its own judgment over the final decision taken in respect of selection of persons for those posts.
Chief Constable of the North Wales Pollce v. Evans, [1982] 3 All E.R.141; referred to. · 1.5. In the facts of the present case, th~ procedure prescribed by Section 24 of the Code have not been followed by the District Magistrate. There is (1993) 3 S.C.R.
A . nothing on the records of the case to show that any panel, as required by sub- section (4) of Section 24, was prepared by the District Magistrate in consul- ~tion with the District & Sessions Judge. The District l\fagistrate simply "tnade some general comment in respect of the appellants, when the District & Sessions.Judge had put them in List 'A' ofhisrecommendation. This shall not amount to either the compliance of sub-section (4) of Section 24 of the Code or ParaJ.06(2) of the Manual. It appears there has been no effective or real consultatiun between the Sessions .Judge and the District Magistrate for preparation of the panel, as contemplated by sub-section (4) of Section 24 of the Code.
t .6. The members of the legal profession are required to maintain high standard of legal ethics and dignity of profession. They are not supposed to solicit work or seek mandamus from courts in matters of professional engagements.
1.7. In view of the strong recommendation about the quality of the D appellant's professional work, the District Magistrate should have applied his mind in consultation with the Sessions Judge, in respect of each individual case, instead of making a general and identical comment against all the appellants.
1.8. As the District Magistrate has not performed his statutory duty as enjoined by law, the appeals of the appellants have to allowed. 1.9. The District Magistrate is directed to perform his statutory duty afresh, in accordance with the requirementofSection 24 of the Code read with the relevant paragraphs of Chapter VII of the Manual, which are not inconsistent with Section 24 of the Code, so far the appellants are concerned, if the vacancies are still there. The necessary steps shall be taken preferably within four months from"the date of this judgment. The State Government shall thereafter perform its part in accordance with Section 24 and different paragraphs of the Manual which are applicable in the facts and circum· stances of the case.
Kumari Shri/ekha Vidyarrhi v. State of U.P., [1991] 1SCC212, referred to. 2. The District & Sessions Judge, who is required to express his opinion · on the merit and the conduct of the persons recommended for appointment or extension of the period as District Government Counsel, has expressed the ….
HARPAL SINGH'" STATE OF l;.P. opinion that appellants (in C.As~ Nos. 386-387 of93) are "average law~·ers", A and has put them in List' B'. In other words, neither the District & Sessions .Judge has recommended the case o.f the appellants of these appeals for extension nor the District l\fagistrate. Their case cannot be treated at par with the a.ppellants of the other appeals. In such a situation, no useful purpose will be ser\'ed by directing the District Magistrate tO perform his statutory dutJ', as required by sub-section (4) of Section 24 of the Code again, even in respect of these appellants.
3 . ..\lthough power has been vested in a particular authority, in subjec· tive terms, still judicial review is permissible. Barium Chemicals Ltd. v. Company Law Board, AIR (1967) SC 295; State of Assam''· Bharat Kala Blumdar Ltd; AIR (1967) SC 1766; Roluas Industries Lta. v. S.D. Agarwal, AIR [1969) SC 707; The PurtabpurCompany Ltd. v. Cane Commissioner of Bihar, AIR [1970) SC 1989 and; M.A. Rasheed\'. The State pf Kera/a, AIR (1974) SC 2249, relied on.
CIVIL APPELLATE JURISDICTION: Civil Appeals Nos. 722 and 723 of 1993. From the Judgment and Order dated 13.11.92 of the Allahabad High Court in W.P. Nos. 688 & 1246of1992. WITH CIVIL APPEALS NOS. 386 and 387 of 1993
From the Judgment and Order dated 13.11.92 of the Allahabad High Court c inW.P.Nos. 819and888ofl992. Rajiv Dhawan, P.K. Dey and Rakesh Gosian, Ms. Rani Jethmalani, (N.P.) for the Appellants in C.A. Nos. 722~23/93.
R.P. Saxena for the Appellants in C.A. Nos. 386-87/93. Yogeshwar Prasad and Ms. Rachna Gupta for the Respondent. The Judgment of the Court was delivered by c SUPREME COL' RT REPORTS
I I 993] 3 S.C.R. N.P.SINGH.J The appellants in Civil Appeals Nos. 722 & 723of1993 had been appointed as Assistant District Government Counsel (Crimin al) to appear in different criminal cases, on behalf of the State, in different Courts in the District ofMoradabad. They filed the connected Writ Applications before the High Court against the decision of the State Government, refusing tn extend their term for a further period of three years, which were dismissed by the High Court. It appears that the appellants. except appellant No. 3, Gopal Sharma, had been appointed by Government Order dated 25 .2. 91. as Assistant District Govern- ment Counsel (Criminal) in the District of Moradabad, in accordance with the provisions of Section 24 of the Criminal Procedure Code (hereinafter referred to as "the Code") and the Legal Remembrancer Manual (hereinafter referred to as "the Manual") against the substantive vacancies.
Appellant No. 3, however, had been appointed on 13.12.1990. The last date of the tenure of the appellants, other than appellant No. 3, as mentioned in the aforesaid Government Order dated 25.2.1991 was 31.12.1991. The tenure of appellant No. 3 was up to 13.12.1991. It is not in dispute that before the expiry of the term aforesaid, the District Judge, Moradabad, by his letter dated 27: 12.1991 recommended the names of appellants for extension of their terms. The District Judge prepared two lists i.e. 'A• and 'B ·. List' A· contained the name of those lawyers "whose work and conduct has been approved for their extension as Government Counsel", whereas List 'B ·contained the names of the remaining Government Counsel, who in the opinion of the District Judge were "average lawyers··. The names of the appellants are in List 'A· . The District Judge requested the District Magistrate. Moradabad. to send his recommendation to the State Government for extension of the . term of the Government Counsel. mentioned in List' A·. The District Magistrate, after receipt or the recommendation of the District Judge aforesaid, by a communication dated 2.1.92, did not recommend the names of the appellants, for extension of their terms, saying that on the inquiry at his level, "reputation, professional work, behaviour and conduct of the above mentioned Government Counsel was not found in accordance with public interest". It may be mentioned that on 28.12.91. the State Government had extended the terms of the appellants till further orders. Ultimately, without assigning any reason. the extension recommended by the District Judge was rejected by the State Government, which decision is the subject matter of the controversy in the present appeals.
In the State of U.P., the Manual i~ an authoritative compilation of the gn·,·ernment orders and instructions for the conduct of legal affairs of the State Ooven~ment. Para 1.06 of Chapter VII gives the details of the Law Officers of the Government, which includes the Government Counsel (Civil, Revenue, Criminal) …. –
_., J L\Rl'i\L Sii\< ill .r. SlAllo OF L'.P. !NJ'. Sl:\<ill. .I.I ahing \\'ith 111d11y 11lhl·rs like .ludil·i~tl Secretary ~111d I .cgislati\'e Secretary. The Chapter Vll 11f tile M;mu;tl c1111t;1ins the prucedure in respl'c'l 11f appllintmcnt and rnnditiuns of engagements of District Civvernment C11unsel. The District Officer is required tu cunsider all the applications received. in cor.sultation with the District Judge and tn suhmit in order of prcicrence the names of the legal practitiuners. ahrng with the upinion 11f the District Judge nn the suitability and merit llf each candidate lll the State (_iLwernment. giving due wightage to the claim ut the existing incumbents, if any. After the receipt uf such recommendations, the I .egal Rememhrancer is required tu submit the said recommendations with his own upinion for the orders of the State Government.
In Para 7Jl6 of the l'vlanual. the procedure regarding the appointment and renewal has been prescribed :- "7 Jl(1. Appuintment ancl renewal – (I) The legal practitioner final I y sdected hy the ( i11vernment may be appllinted District Government C\)unsel for one year fmm the date of his taking over charge. (2) At the end of the aforesaid period, the District Officer after consulting the District Judge shall submit a report on his work and conduct to the Legal Rerncmberancertogether with the statement of work dune in Form Nu. 9. Should his wurk or conduct be found to he unsatisfactory the matter shall be reported to the government for orders. If the report in respect of his work and conduct is sati sfac- tury. he may be furnished with a deed of engagement in Furm No. I for a term not exceeding three years. On his first engagement a cupy of Form No.2 shall be supplied to him and he shall complete and return it to th~ Legal Remembrancer for record.
(3) The appnintmcnt of any legal practitioner as a District ( iuvcrn- ment Counsel is unly prllfessional engagement terminabk ~it will on either side and is nL1t appointment to a post under the gon~rnment. Accordingly the gL)\'ernment reserves the power to terminate the appointment of any District Government Counsel at any time without assigning any cause."
Para 7.08 contains the procedure for renewal after expiry oi the original term:- "7.08. Renewal of term – (I J At least three months before the ~ .. ,::y c lJ76 c 1-1 Sl.'PRE~IE COl."RT REPORTS
[199~1 ~ S.\.R. of the term of a District Government Counsel. the District Offo:er shall at"tcr consulting the District Judge and considering his past recl>rd of w1)rk. conduct and age. report to the Legal Rememhrancer. together with the statement of work done by him in form NlJ.9 whether in his opinion the term of appointment of such counsel sh1JU Id he renewed or not. A copy of the opinion of the District Judge should also he sent along with the recommendations of the Distri~t omcer.
(2) Where recommendatiun for the extension or the term of a District Guvemment Ci:>unscl is made for a specified perimJ only, the reasons therefor shall also be stated hy the District Orficer. (3) While forwarding his recommendation for renewal or the term of a District Gon:rnment Counsel-
· (i) the District Judge shall give an estimate of the quality 1>f the Counsers work from the judicial standpuint, keeping in view the different aspects nf a lawyer's capacity as. it is manifested hefore him in conducting Stale cases, and specially his professional conduct.
(ii) the District Officer shall give his report about the suitahility l)f the District Government Counsel from the administrative point of view. his puhlic reputati1m in general. his character, integrity and professional conduct.
(4) ff the government agrees with the recommendations of the District Officer for the renewal of the term uf the Gu,·ernment Counsel. it may pass orders fi>r re-appointing him for a period not exceeding three years.
(5) If the go\'ernment decides not tu re-appoint a Government Counsel, the Legal Remembrancer may call upon the District Officer to forward fresh reconm1endations in the manner laid down in para 7.Cl3.
(6) The procedure prescribed in this para shall be followed on the expiry of C\'ery successi\"c period of renewed appointment uf a ;: – i-·· – ii \Rl'Al. SIN(JIJ 1·. STAii 111 1·.P. (N.P. Sll"flll..1.1 Nnte : The renewal tieyund ()() years of age shall depend upon c1mtinu11us g1111d w1Jrk, sound integrity and physical fitness of the (\1unsel."
It was p11i11teJ 11u1. ,,n tichalf 11f the appellants. that any legal practitioner finally sekclt'd tiy the < im-crnml'nt may l°ll' app11inted as District Go\'emment ( \ 1unsl'I fur 1111e year frpm till' datl' '>f his taking O\'Cr charge. hut in \"il'\\ of Para J 7.r l(111f.the r·.-1 anual. at the enJ 'if the aroresaiJ period. the I >istrict Magistrate. atkr c1msultln_!,'. the District Judge has t11 suhmi! a report on his work anJ c11nJuct [11 the I .egal Reml'mbrancer in the f11rm pn:scrihcd. If the report in respect 11f his w0rk c
and c11nduct is satisfac!l1ry. then such Counsel shall he furnished with a deed of engagemem in f11rm N11. I t«ir a term n111 cxceeJing three years. Para 7.0X. of the l\fanual. cnntains the pn 1ccdurc for renewal uf the term nf the District ( io\'ernmem Counsel after the expiry 11f 11riginal term. It requires the District Olfo:er at least thret• m11nths tie1«1re the expiry 11f the term of a District Ciovernment Counsel. to report l\1 the 1.cgal Rcmc111hra11cer. after C1l11SUl!ing the District Judge and n C(111sidering the past rec11rd 11f m irk. conduct and age of such District ( io\'ernment ( 'ounsl'l. lfthe (ill\·ernment agrees with the rcrnmmcndation. it may pass an< >rder re·appllinting him for a pcrhid not exceeding three years .. The stand of the appellants is that. in \'iew of Para 7.06(2). the app1iintment 11f any legal practitiuner as a I >istrict Ciu\'ernment Counsel, dues n1)t automatically come hi an end. rather it indicates and elemem uf continuity and that is why Para 7 .t l(1( 21 requir~·s the District < >fficcr. at the end 11f period of Dne year h 1 suhmit a rep11rt. after cnnsulling the I >istricl .Judge cnncerned. in respect llf the w11rk and cnnduct 1Jf such District ( i11\·ernment Counsel. to the Legal Remembrancer. in a f11rm prest·ritied. If the rep1irt in respect 11f w11rk and c11nduct is satisfac\11ry. then such District< i11wrnment < \1unsel shall he furnished with a deed of engagement. in a fprn1 prescrihed f11r a term 111Jl exceeding three years. As such after the perind nf1111c year. if the engagement fur a further period upto three years is n11t given. it amnunts hi a stigma.
On hchalf 11f the appellants. <lllention nf this Court v~:as drawn to a letter addressed to the District Magistrate hy Dr. Nepal Singh. M.L.C .. the District President nf the party then in p1m·er. recommending the names nf 11ther fin\'ern· ment ( \iunsl'I for renewal/Cxtcnsion llf their term. It was pointeJ 1lUt that. in respect llf all thnst• pers(1ns. The District Magistrate has recommended h>r cxtensinn. There is. h1Jwe,·er. n0 material hef11rc us 111 sh1iw that the Distri.:t .\SUPREME COllRT R!:PORTS
. i -,, '..__ __ I 1993}35.C.R. ·< . .. -\ ~t8gistrat~ '"as infh.ienc(d b.J t:ne s;iid lci't~r tn any _1nanncr. ~part fron1 that. thl· persons so reco1n1nendcct ~the District f\1ag,istrate_ ~e'rt!. not in1pleadect as respondents to the- \Vrit Appl_ications. As such \VC arc not i~\.'.lincd to go_ into ~is a.'pcCt
II The diffrrent paragraphs of the Manual aforesaid were e~amined in detail in the c~se of Kwnari Shrifeklt11. Vidyarfhi v. State <f U.I', ll 991 I 1 sec 212. in conn<'Ction'.·\;iti1 an Ord.rd~" F.bruary 6. 1990. issued hy the State 11f U.P .• . terminating the appoi1ttm<nl:-,.of all Government Counsel (Ch·i!. Criminal anJ Revenue), in all thedistrict$ofthc Stateof U.P. witll effectfrom Febru;uy 28. 1990 and directing the pr~paration of fresh panels: for mak.ing aprll,intmcnts in plal..'.'cs llf– ~he.existing incumbents.. \Vhilc quashing such gcn.cr.il t1rdcr it \\'as said:· n
.. Vitwcd i~ any 111~1nncr. the impugned circular dated February 6. I 9'JO isarbitrary. ltterminatcs all theap[ll1intmf'Ots of Government. Co11n5"' inthedlstriclsof OleS~of Uttar PriJdesh ~yan omnih~ order. even thou.,gh these appoin1ments \\·ere all individual. Na common reasan applicableto al 1. of then1justifying thc:ir tennination in one strok_c tlll a n:asi1nahlc ground has been sho\vn_ 1·11e suh1nis- sinn on hi:half of tflc: State or lJuar 1•raJesh at the hearing that niany of then1 '"en: likely hJ he' re-appointed. is hy ilself ample proof of the fact thal then: \V<.is \~llal OllO-application uf n1ind hl the inJividual cases bcftln: i:'\suing the general on.ll!'r 1crn1inating all the appoint- – – mcots. This \Vas dune in spite of the clear provisions in the L.R. manual lying dO\\'O detailed pn1cedurc fl)r apfll.1inunt:"nt. 1cm1ina- . th1n a1ld rcnC\\'aJ l'ftcnurc and the re4uirl!'mcnt hl lirst cunsiJer the existing incumtient for renc\\·al of his ti:nurc and to take :i;.tc:ps fllr a . fresh ~1ppi.1intmcnt in his place only if the existing incurnhent is-nlll founJ suilahlc in co1nparisl>O to more suilabJ~ pcrSllOs a\·ailahlc flir ap(ll1inuncnt at ~he tinlC of rcnc\\'al. In th~ \:ase of cxistin~ appt1in- tees: a U1.~isil1n has to he first reachc:d ahout thl.!ir non-suitahility fl)r .. rent"\Val heforc deciding 11.1 take steps tt_1r makin!! fresh appoint- n1ents h' rcplac~ ·them.
None . ._,.- these steps \\·ere taken and no material has ·been produced to sho\v that any cxis_1ing _"incun1bent \va_, fllUnd unsuitabli: for the oftice on nbje_cth·e assessment beflirc _ – the J1.·i:ision ·to replace ·all by fresh appointi;es \Vas taken. T~c prescrihed proccduri: laid do\\·n in the L.R. ~lanual \vhich has 10 ftgu._late cxcn:isc of this [lO\\'er Yias hJtally ignored.- In the present case. il appears to he an adntitted positil'O lhat appl)intmcnts 9fthcapp!.•ll-an1s as Assist~nt lli"_trk·t < io,-~mmcnt Counsel {Crintlnal.l is i:!Ovci:_ncd I IARPAL SINGH v. STA TI: OF lJ.P. [N.P. SING~!. J.1
by Secti1ll1 24 uf the Code, as well as different paragrapns of Chapter VII of the !Vlanual. It was not disputed on behalfof the State, that appellants shall be deemed to be Additional Puhlic Prosecutors within t~e meaning of Section 24 of the Code, although in the urdcr of appointment they have been designated as Assistant District Government Counsel (Criminal). Th~ procedure prescribed in the Manual can be obser\'cd and followed as supplemental to the provisions of Section -24 of the Code. Needless to say that, if there is any conflict, then Section 24 of the Code being statutory in nature will override the procedure prescribed in the Manual. The relevant part pf Secti11n 24 is as such:-
· ~4. Public Prosecutors -(!) For every High Court, the Central ( ;, '' ernmcnt 11r the State Government shall, after consultation with the l ligh ( \mrt, appoint a Public Prosecutor and may also appoint one or more Additional Public Prosecutors, for conducting in such Court, any prosecution, appeal or other proceedings on behalf of the Central Government or State Government, as the case may be. (2) …………………. .
(3) For every district, the State ·Government shall appoint a Public Prosecutor and may also appoint one or more Additional Public Prosecutors for the district: Provided that the Public Prosecutoror Additional Public Prosecutor appointed for one district may be appointed also to be a Public Prosecutor as the case may ·be for another district.
(4) The District Magistrate shall, in consultati1m with the Sessions Judge. prepare a panel uf names of persons. wh1J arc. in his opinion. c fit tu be appointed as Public Prosecutors or Additional Public Prosccutnrs for the district.
(5) No Person shall be appointed by the State Government as the Public Prosecutor or Additional Public Prosecutor for the district unless his name appears in the panel of names prepared by the District Magistrate under sub-section (4)."
The Code prescribes the procedure for appointment of Public Prosecutor and Additional Public Prosecutor, for the High Court and the District Courts by the State Government. The framers of the Code, were conscious of the fact. that the Public Prosecutor and the Additional Public Prosecutor have an important role, c
SUPRE:\1E COL:R.T REPORTS ( 1993( 3 S.C.R. while prosecuting, on behalf of the State, accused persons. who arc alleged to have committed one or the other offence. Because of that, pm visions have been made fllr their selection in the Code. It is for the Sessions Judge to asse~ the merit and professional conduct {Jf the persons recl~n11nended for such appointments and the District Magistrate to express his opinion on the suitability of persons so rec(1m- mendcd. from the administrative point of view. Sub-section (:'i) uf Section 24 provid~s that no person shall be appuinted by the State Glivernment as the Public Prosecutor or as an Additional Public Prusecutor .. unless his name appears in the panel of names prepared by the District Magistrate under sub-section i4f. The aforesaid section requires an effecti\'e and real consultati11n between the Sessi11ns Judge and the District Magistrate, about the merit and suitability of person tn be appointed as Public Prosecutoror as an Additional Public Prosecu111r. That is why it requires, a panel of names of persons, 10 be prepared by the District Magistrate in consultation with the Sessions Judge. The same is the position so far the Manual is concerned. It enumerates in detail, how for purpose of initial appointment. extension or renewal. the District Judge who is also the Sessilln Judge, is to gi\'e his estimate of the quality of the work of the Counsel from the judicial standpoint and the District Officer i.e. the District Magistrate is to report about the suitability, of such person, from administrative point of \'iew.
On behalf of the State, our attention was drawn to the expression .. in his opinion .. occurring in sub-section (4) of Section 24 of the Code. It was urged that as the Code \'CSts power in the District Magistrate to consider the suitability of the person concerned, for appointment, according to his opinion, there is not much srnpe of judicial review by Courts, unless a clear case of malice on the part 1 if the District Magistrate is made out. In view of the series of judgments of this Court in Hariwn Chemicals Ltd. v. Company Law Board. AIR 1 %7 SC 295; State qf Assam , .. Bharat Kala Rlwndar Ltd.1AIR 1967 SC 1766; Ro/11as I11d11s1ries Ltd.\', S.D. Aga11rnl, AIR 1969 SC 707; The P11rtabp11r Company Ltd. v. Cane Commissioner <?f Bilwr, AIR 1970 SC 1896 and M.A. Rasheed, .. The State of Kera/a, AIR 1974 SC 2249, it is almost settled that, although power has been vested in a.particular authl1rity. in subjective tenns, still-judicial review is permissihlc. In the present case the District & Session Judge strongly recommended extension for the appellants, saying that so far their work and conduct were· concerned, the same had been approved. But the District Magistrate, simply said that on the inquiry at his level .. reputation. professional work. behaviour and conJuct of the appellants as government counsel wa.; not found in accordance with the putilic interest". The quality of the Counsel' work has to be judged and assessed ..,._ –
1 IARPAL Sl'.'\Gll "· ST.-\"n: OF I '.P. (:'\.I'. Sl:"Gll . .I ( hy the District & Sessi1ms Judge. Thi! District l'vlagistrate is required ILi rnnsider Lhe suitability of such person. fnim the administrali \'e point of vil!w. Acc1Jrding tu us, in view of the strong rec1rnm1endati1>n abLmf the quality of the appellants' professional work, the District Magistrate should have applied his mind in rnnsultation witli the Sessions Judge. in respect of each individual case. instead oi making a gcneral and identical cnmment against all the appellants. Apart from that the mandate of sub-section (4) of Secti1rn 24 is that ··che District Magistrate shall, in c1msultation with the Sessio,As Judge. prep;•re a panel or names of persons"". Sub-section (5) of Section 24 prescribes a statutory har that nu persun shall he appointed by the State Government as the Public Prosecut1lr or Additional Public Prosei:utor li.1r thc district ··unless his name appears in the panel of names prepared hy the District Magistrate under sub-section (4f. When sub- section (4) and suh-sectiun (5) of Sectiun 24 of the Code. s('leak atmut preparation c
ufa panel.out ufwhich appuintments against the posts of Prosecutoror Additional Public Prnsecutur have to be made. then the Sessions Judge and the District Magistrate arc required to cunsull ;rnd discuss the names of the persons 11t to be included in the panel and to include such names in the panel. The expressions ""panel of names of persons'",do not mean that some names are to he sugges1cd by the Sessions Judge and some comments arc to be made, in respect of those names by the District Magistrate, with1Jut proper consultation and discussion over such names. The statutory mandate ought to have heen complied with by the District rvtagistrate and the Sessions Judge in its true spirit. In the facts uflhe present case. nlJ such pand appears to have been prepared by the District Magistrate in h!m1s uf sub-section (4) llf Section 24. As Section 24 of the Code does not speak ahout extcnsh~n or renewal of the term 1)f the person so appointed, the same procedure. as pro\'ided under sub-section (4) of Section 24 of the Code, has to be followed. In the present case the District Magistrate. instead of ha\'ing an effective and real consultati1m with the District & Sessiu11s Judge. simply made some ,·ague and general comments against the appellants, which cannot be held to he the cnmpli- ance of the requirement of suh-section (4) of Section 24.
In the case of Kwnari S/1rileklta Vicfrarthi (supra), this Court was not concerned with the question regarding the extension/renewal l1f the terms of the. Government Counsel. The primary question which was examined by this Court in that case. was as w whether it was open to the State Go\'ernment by the impugned circular dated February 6, 1990. to terminate appointments of all the Government Counsel in the different districts or the State, by an omnibus order, e\'cn though. thLlSc appointmems were all indi \'idual. It was held that any such exerdsc of power by the State Go\'crnment cannot satisfy the tcs1 of Article 14 .:Jf lhe Gmstitution n
c 'JlQ Sl'l'RE\IE C<Jl.'IH REl'OR rs [l9'l<) 3 S.C.R. anJ. as such. was unn:asllnahk and arhltrary. In that con11ecti1m reference was made to lht• l'vlanual af1iresaid and it was pointed out that the said Manual has laid dmvn detailed procedure for appnintment. termination and renewal llf the tenure 11f the District Government Counsel. It was pointed out, that different paragraphs 'if the Manual require. tirst lo rnnsiJer the existing incumbents for extension and r~·ncwal llf their tenure anJ hl lake s1eps f11r fresh appuintment in their place. if the existing incumhcnts were not found suilahle in comparison to more suitable persons a\'ailable fnr appllinlment at the time M. the renewal. As already mentilmed above. Sectinn 24 of the Code does not speak about the extension ur renewal of the term pf the Public Prosccutoror Additional Puhlic Prosecutor. But after the expiry uf the term of the appointment or persons concerned. it requires the same statulilry exercise, in which eitherncw persons are app11intcd or those who have heen working as Public Prosecutor or Additional l'uhlic J>rnsecutnr. arc again appDinted hy the State Government, for a fresh term. The prm:edure prescritied in the l'vtanual – to the extent – it is not in con!lict with the provisions 11f Section 2.+. shall he deemed to be supplementing the statutory provisillllS. But merely because there is a provision for extension or renewal of the term, the same cannot he claimed as a matter of right.
It is true that none of the appellants can claim. as a matter of right, that their terms sh1)uld have hcen extended or that they shnuld be appointed against the existing vacancies. but, certainly, they can make a grievance that either they have not received the fair treatment hy the appointing authority or that the procedure prescribed in the Code and in the Manual aforesaid. have not hecn followed. While exercising the pu\verofjudicial re\'icw e\'cn in respect of appointment of members 11l the legal profession as Distrh:t G1i,·ernment Counsel, the Court can examine whett1er there was any infirmity in the "decision making process." Of course, while d1)ing Sil. the Court cannot suhstitute its own judgment O\'er the final decisinn taken in respect llf sclecth'n of persons for those posts. It was said in the case ,,f CIIiefCunstahle <ft Ile North \Fales Police v. Evans. ( l 982) 3 All E.R. 141 :- "The purp11se 1>fjudicial review is to ensure that the individual receives fair treatment. and not to ensure that the authority, after acc11rding fair treatment. reaches on a matter which it is authorised or enjoined by law to de1.:ide for itself a conclusion which is correct in the eyes of the court."
In the facts of the present case, the pmcedurc prescribed by Section 24 of the C\1dc have nlH been followed by the District Magistrate. There is nothing on the r I L\RJ' .. \L 'ii\'< ill 1·. STAil~ OF I '.P. JN.P. SINGH. JI rL'Cl1rds l1f the case tti slllJ\\' tll~1t any panel. as rl'quircd by sub-section (4) of Section 2-L was preparcJ by till' District f\lagistrate in Clrnsultation with the District & Sessilins Judgl'. The District Magistrntc simply made some general comment in respect of the appellants. \\'hen the District & Sessions Judge had put them in List 'A· llf his recommcndatinn. Acrnrding tll us. this shall not amount to either the compliance uf suh-secthrn 14) lit' Section 24 of the Code or Para 7 .06(2) of the Manual. It appears there has been ill' effective or real consultation between the Sessions Judge and the District Magistrate for preparation llf the panel, as contemplated by suh-sectillll (4) of Section 24 uf the Cl)dc. The members of the legal profcssillll arc required to maintain high standard nf legal ethics and dignity, if profession. They arc not supposed to solicit work or seek mandamus frnm cnurts in matters of professional engagements. We have been persuaded to interfere in these matters to a limited extent. as we arc satisfied that there is patent infractinn nf thl' statutory pmvisions nfthe Cude. As we are of the ,·icw that the District Magistrate has not performed his statutory duty as enjoined by law. the appeals or the appellai1ts have to be allowed. In the result. the appeals arc alhl\vcd. We direct the District l\fagistrate, Muradabad. tu perform his statutory duty afresh. in accordance with the require- ment of Section 24 of the Cnde rcaJ '' i th the relevant paragraphs llf Chapter VII c
of the Manual. which arc thll il1CllllSistc1H with Section 24 of the Code. so far the appellants are cnncerned. if the vacancies arc still there. The necessary steps shall be taken preferably within four months from the date of this judgment. The State Government shall thereafter perform its part in accordance with Section 24 and different paragraphs of the Manual \\·hich are applicable in the facts and circum- stance~ llfthc case. We make it clear tllat we are nut expressing any l)piniun on the merit of the claim of the appellants "' get extenshm nr appl1intment against the posts of Assistant District Gln·ernml'1lt Counsel (Criminal). There will he nu order as tll CllSIS.
CIV!LAPPFAUi NOS. 386 & 387OF1993 So far the appellants M these appeals arc concerned. their names were put under List· B' by the District & Sessions Judge in his recommendation saying that they were ··average lawyers··. Their case stands nn a different footing. The District & Sessions Judge. whl1 is required tu express his opinion lJll the merit and the conduct of the pcrs11ns recommended fur appnintment or extension of the pcrimt -·-.~–;,.·,,,— -… . ~ .. '-,
•J;~ 119•JJ!3S.C.R . • L .: : :Sl'l'RE'.\1EC01-.RT REJ'(>RTS ·,·\~ -~-', \ .::-. ' ;.1s DistrictGoV\:n1n1cnt Cou~n. has c.-xpn:ssl·d th!.! llpininn th;.n e1ppc.•1lants arc ''aVerage la,,-yerS~. ~10d h;I~ put 1c1n in 1.ist: H ~~ l~\lthcr\\'llHfs. ncitht.•r the [1istrict • &. Se~ions J.lldgc has n:c~1rl1n1 ru.lc<l th~ caS~ \)f the aPPc11ants ,1f these appeals for extcn:'\h1n n,>r the IJist'rict 't..·1a• istf-Jti:: ·fhi:ir cdsc ·can1l~lt ti~ treated at par v.·ith the apPclla~ts()f the l1thciapP"'als. i11' such; ~itllatf,111. "'' !'scful pufPosc \\'ill he scrYcJ II
by directing the Oist~i-ct Magistrate to perfonn his st;futnry du_ty. as rc4uircd hy sub-sccd,1n (4) ,,f S1:-cti,1n 24 of the Code c:igain. e\·cn in respect' ,f these ap[)\!llants. Accoidingty~ mesc-appi.!als afi: disnUsscd. 'fhi:ri: \\"ill be 'nO urdcrs as ltJ costs. ., \'.PJ{. –
,. , C.A. Nos. 722 anJ 72.V'-!3 allowcJ . C.A. N•>S. 38(1 anJ 387N3 dismissed. '<''" ~——