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CASE NO.:

Appeal (civil) 5395 of 1997

PETITIONER:

SATISH KUMAR SHARMA

Vs.

RESPONDENT:

THE BAR COUNCIL OF HIMACHAL PRADESH

DATE OF JUDGMENT: 03/01/2001

BENCH:

S.V.Patil, R.C.Lahoti

JUDGMENT:

L.....I.........T.......T.......T.......T.......T.......T..J

J U D G M E N T

Shivaraj V. Patil, J.

In this appeal, the appellant has assailed the

resolution of the respondent dated 12.05.1996 withdrawing

his enrolment as well as the order of the High Court

upholding it.

The facts, which are considered necessary and relevant

for the purpose of disposal of this appeal, are the

following:

After securing LL.B. in 1975-76 the appellant was

appointed as Assistant (Legal) by the Himachal Pradesh State

Electricity Board (for short the Board). The said post

was re-designated as Law Officer Grade-II in 1978. The

Board, by its order dated 6.9.1983 allowed the appellant to

act as an advocate of the Board and also ordered that the

expenditure of his getting licence from the Bar Council

shall be met by the Board. His application seeking

enrolment was sent by the Secretary of the Board to the

respondent on 13.10.1983. The Secretary of the respondent

by letter dated 28.3.1984 informed the Board that the Office

Order dated 6.9.1983 of the Board did not meet the

requirements of the Rules and that the appellant should

first be designated as a Law Officer. The respondent also

requested the Board to send the order of appointment and the

terms of such appointment of the appellant. The Board by

order dated 11.6.1984 modified the earlier order dated

6.9.1983 and declared the appellant as a Law Officer of the

Board. On 5.7.1984 another order was passed by the Board by

changing the designation of the post of Law Officer

Grade-II as Law Officer. It is, thereafter, the

respondent issued a certificate of enrolment dated 9.7.1984

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to the appellant. By Office Order dated 8.5.1991 the

appellant was given ad hoc promotion to the post of Under

Secretary (Legal)- cum-Law Officer, which order also stated

that he would continue to work in the Legal Cell of the

Secretariat of the Board. Further on 14.1.1993 he was

promoted as Under Secretary (Legal)- cum-Law Officer on

officiating basis.

By its communication dated 13.9.1993 the respondent

called upon the appellant to appear before the Committee on

28.9.1993 along with all connected documents/evidence in

regard to his enrolment as an advocate. The said

communication indicated that in the meeting held on

10.7.1993 the respondent considered the matter regarding

enrolment of certain Law Officers and decided to constitute

a committee to examine the same. Thereafter on 27.12.1993 a

show cause notice was sent to the appellant requiring him to

explain as to why his enrolment No. HIM/35/1984 issued to

him be not withdrawn. Reply to the said show cause notice

was to reach by 30.12.1993. After taking extension of time

twice the appellant sent a communication on 25.2.1994

stating that there was no ground for withdrawal of his

enrolment reserving his right to file a detailed reply. He

also stated that he would like to be represented by an

advocate.

The appellant was promoted as Deputy Secretary

(Legal)-cum- Law Officer on ad hoc basis by the Office Order

of the Board dated 30.1.1995 and he was required to continue

to work in the Legal Cell.

In the meeting held on 12.5.1996 the respondent passed

a resolution unanimously withdrawing the enrolment of the

appellant with immediate effect and directed him to

surrender the enrolment certificate within 15 days

therefrom. The relevant and material part of the resolution

reads: -

....

Shri Satish Sharma is a permanent employee of the

HPSEB and presently he is holding the post of Deputy

Secretary in the HPSEB and is in continuous employment of

the HPSEB and under Rule 49 he is debarred to be an

Advocate. Moreover, he was enrolled as an Advocate

initially when he was appointed as Law Officer. Thereafter

he had been getting promotions and working as Assistant

Secretary/Deputy Secretary in the HPSEB. In fact he was

required to intimate the said fact to the Bar Council

immediately on promotion and should have surrendered the

licence but he failed to do so.

Under these circumstances there is no justification to

retain Shri Satish Sharma on the Roll of the Bar Council as

an Advocate.

It is, thus, resolved that the Enrolment No.

HIM/45/1984 be and is hereby withdrawn with immediate effect

and he is ordered to surrender his Enrolment Certificate

within a period of 15 days.

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It is this resolution, validity and correctness of

which was challenged by the appellant before the High Court

in the writ petition contending that the enrolment was

validly granted to him as he fulfilled the requirements of

relevant provisions of the Advocates Act, 1961; he also

pointed out that advocates, who obtained enrolment and later

on joined State Government service in the Prosecution

Department, have continued to retain their enrolment and

defend the State Government in the courts; no rules have

been framed by the respondent preventing persons like the

appellant from getting enrolled, it was not open to the

respondent to withdraw the certificate of enrolment;

according to him Rule 49 of the Rules framed by the Bar

Council of India has been misconstrued and misunderstood by

the respondent. In short it was contended that the

respondent had no jurisdiction to withdraw the enrolment

certificate granted to the appellant. The Division Bench of

the High Court by an elaborate and well- considered order

dealing with all aspects dismissed the writ petition. Hence

the appellant has filed this appeal assailing the order of

the respondent as well as the order of the High Court

affirming it.

Learned senior counsel for the appellant, while

reiterating the contentions urged before the High Court,

submitted that the High Court failed to appreciate that the

second para of the Rule 49 carves out an exception to the

Bar created by Rule 49, precluding a full time salaried

employee from practicing as an advocate; the said exception

was subject only to one limitation, i.e., an express bar

created by Rules, made by any State Bar Council in exercise

of its powers under Section 28(2)(d) read with Section

24(1)(e) of the Advocates Act, 1961; since the respondent

has not framed any rules expressly barring such Law Officers

from being enrolled as advocates the appellant was entitled

for enrolment. According to the learned counsel the High

Court also failed to note that it was not a case of refusal

of enrolment to a Law Officer but it was a case wherein the

respondent was estopped from canceling the certificate of

enrolment issued to the appellant by the very respondent as

early as on 9.7.1984; therefore, cancellation of enrolment

after almost a decade and half based on an erroneous

interpretation of Rule 49 of the Rules of Bar Council of

India, was unjust. It was also urged that the appellant had

placed all the material before the respondent before

obtaining his enrolment certificate and there was no

concealment of facts on his part and that the appellant was

discriminately treated. The learned counsel added that the

impugned action of the respondent was unwarranted as it

amounted to a punishment of removal of the name of an

advocate from the Roll of the State Bar Council as

postulated by Section 35(d) of the Act without following the

procedure.

Per contra, the learned counsel representing the

respondent made submissions supporting the orders impugned

in this appeal. According to him the appellant was not at

all entitled for enrolment as an advocate having regard to

Rule 49 of the Bar Council of India Rules in the absence of

any enabling provision to a full time salaried employee for

enrolment as an advocate. The learned counsel submitted

when the appellant was not at all entitled to be enrolled as

an advocate the action taken by the respondent after lapse

of some time is of no consequence and the delay in taking

action in a case like this itself does not give protection

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so as to sustain the enrolment. He further submitted that

there was no discrimination as alleged by the appellant

looking to the nature of duties of the prosecutors in the

State Departments and the appellant.

We have carefully considered the submissions made by

the learned counsel for the parties. We consider it useful

and appropriate to look at the relevant provisions of the

Advocates Act, 1961 (for short the Act) and of the Bar

Council of India Rules (for short the Rules) before

examining the rival contentions on their merits. The

provisions are: -

Section 24. Persons who may be admitted as advocates

on a State roll. (1) subject to the provisions of this

Act, and the rules made thereunder, a person shall be

qualified to be admitted as an advocate on a State roll, if

he fulfills the following conditions, namely

(a) ........ (b) ........ (c) ........ (d) ........

(e)he fulfills such other conditions as may be

specified in the rules made by the State Bar Council under

this Chapter;

xxx xxx xxx

Section 28. Power to make rules. (1) A State Bar

Council may make rules to carry out the purposes of this

Chapter.

(2) In particular and without prejudice to the

generality of the foregoing power, such rules may provide

for

(a) ........ (b) ........ (c) ........

(d) the conditions subject to which a person may be

admitted as an advocate on any such roll;

(3) No rules made under this Chapter shall have effect

unless they have been approved by the Bar Council of India.

xxx xxx xxx

Section 49. General power of the Bar Council of

India to make rules. (1) The Bar Council of India may

make rules for discharging its functions under this Act and

in particular, such rules may prescribe.

(a) ........

(ab) qualifications for membership of a Bar Council

and the disqualifications for such membership;

(ac) ......... (ad) ......... (ae) ......... (af)

......... (ag) the class or category of persons entitled to

be enrolled as advocates;

(ah) the conditions subject to which an advocate shall

have the right to practice and the circumstances under which

a person shall be deemed to practise as an advocate in a

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court;

(b) .........

(c) the standards of professional conduct and

etiquette to be observed by advocates;

xxx xxx xxx

Chapter II of the Rules made under Section 49(1)(c) of

the Act read with the proviso thereto deals with standards

of professional conduct and etiquette. Preamble of Chapter

II reads: -

An advocate shall, at all times, comport himself in a

manner befitting his status as an officer of the Court, a

privileged member of the community, and a gentleman, bearing

in mind that what may be lawful and moral for a person who

is not a member of the Bar, or for a member of the Bar in

his non-professional capacity may still be improper for an

Advocate. Without prejudice to the generality of the

foregoing obligation, an Advocate shall fearlessly uphold

the interests of his client, and in his conduct conform to

the rules hereinafter mentioned both in letter and in

spirit. The rules hereinafter mentioned contain canons of

conduct and etiquette adopted as general guides; yet the

specific mention thereof shall not be construed as a denial

of the existence of other equally imperative though not

specifically mentioned.

Rule 49. An Advocate shall not be a full-time

salaried employee of any person, Government, firm,

corporation or concern, so long as he continues to practise

and shall, on taking up any such employment intimate the

fact to the Bar Council on whose roll his name appears, and

shall thereupon cease to practise as an Advocate so long as

he continues in such employment.

Nothing in this rule shall apply to a Law Officer of

the Central Government of a State or of any Public

Corporation or body constituted by statute who is entitled

to be enrolled under the rules of his State Bar Council made

under Section 28(2)(d) read with Section 24(1)(e) of the Act

despite his being a full-time salaried employee.

Law Officer for the purpose of this Rule means a

person who is so designated by the terms of his appointment

and who, by the said terms, is required to act and/or plead

in Courts on behalf of his employer.

In terms of Section 24 of the Act, a person shall be

qualified to be admitted as an advocate if he satisfies the

provisions of the Act, the Rules and the rules, if any, made

by the State Bar Council besides fulfilling other conditions

as laid down in this Section. Even if no rules were framed

under Section 28(2)(d) read with Section 24(1)(e) of the Act

by a State Bar Council, enrolment of a person shall be

subject to the provisions of the Act and the Rules. Section

28 has conferred rule making power on a State Bar Council to

carry out the purposes of Chapter III of the Act. A State

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Bar Council can prescribe conditions subject to which a

person may be admitted on any such roll under Section

28(2)(d) of the Act. In the present case the respondent has

not framed rules in this regard. Under Section 49 of the

Act the Bar Council of India has power to make rules for

discharging its functions under the Act. Rules are framed

by the Bar Council of India exercising the powers conferred

on it. In the Preamble, extracted above, to the Rules made

under Section 49(1)(c) of the Act read with the proviso

thereto it is stated that an advocate shall at all times

conduct himself in a manner befitting to his status as an

officer of the court, a privileged member of the community,

and a gentleman, bearing in mind that what may be lawful and

moral for a person who is not a member of the Bar, or for a

member of the Bar in his non-professional capacity may still

be improper for an advocate. It is further stated that an

advocate shall fearlessly uphold the interest of his client,

and in his conduct conform to the rules. As is clear from

the Rules contained in Chapter II of the Rules an advocate

has a duty to court, duty to the client, duty to opponent

and duty to colleagues unlike a full time salaried employee

whose duties are specific and confined to his employment.

Rule 49 has a specific purpose to serve when it states that

an advocate shall not be a full time salaried employee of

any person, government, firm, corporation or concern. As

already noticed above, Section 24(1) specifically states

that a person in addition to satisfying other conditions has

also to satisfy the provisions of the Act and Rules. In

other words, the Rules made by Bar Council of India are to

be satisfied. Mere non framing of rules by a State Bar

Council under Section 28(2)(d) read with Section 24(1)(e) of

the Act cannot dispense with obedience to Rule 49.

The profession of law is called a noble profession.

It does not remain noble merely by calling it as such unless

there is a continued, corresponding and expected performance

of a noble profession. Its nobility has to be preserved,

protected and promoted. An institution cannot survive in

its name or on its past glory alone. The glory and

greatness of an institution depends on its continued and

meaningful performance with grace and dignity. The

profession of law being noble and honourable one, it has to

continue its meaningful, useful and purposeful performance

inspired by and keeping in view the high and rich traditions

consistent with its grace, dignity, utility and prestige.

Hence the provisions of the Act and Rules made thereunder

inter alia aimed at to achieve the same ought to be given

effect to in their true spirit and letter to maintain clean

and efficient Bar in the country to serve cause of justice

which again is noble one.

This court in Dr. Haniraj L. Chulani vs. Bar

Council of Maharashtra & Goa , while dealing with the

validity of Rule 1 of the Maharashtra and Goa Bar Council

Rules relating to enrolment of Advocates eligibility

conditions, in para 20 has observed that `legal profession

requires full time attention and would not countenance an

Advocate riding two horses or more at a time. That was a

case where a medical practitioner wanted to enroll himself

as an Advocate after obtaining a degree of Bachelor of Law.

Rules framed by the Maharashtra Bar Council denied

simultaneous practice of another profession alongwith

practice of law. It was contended for the appellant that

even though he was a practicing surgeon, if given entry to

legal profession, he would give an undertaking that he would

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not practice medicine during the court hours. Such a plea

was not accepted stating that he would be torn between two

conflicting loyalties; loyalty to his clients on the one

hand and loyalty to his patients on the other. The court

proceeded to say It is axiomatic that an advocate has to

burn the midnight oil for preparing his cases for being

argued in the court next day. Advocates face examination

every day when they appear in courts. It is not as if that

after court hours an advocate has not to put in hard work on

his study table in his chamber with or without the presence

of his clients who may be available for consultation. To

put forward his best performance as an advocate he is

required to give wholehearted and full-time attention to his

profession. Any flinching from such unstinted attention to

his legal profession would certainly have an impact on his

professional ability and expertise. If he is permitted to

simultaneously practise as a doctor then the requirement of

his full-time attention to the legal profession is bound to

be adversely affected. Consequently however equally

dignified may be the profession of a doctor, he cannot

simultaneously be permitted to practise law which is a

full-time occupation. It is for ensuring the full-time

attention of legal practitioners towards their profession

and with a view to bringing out their best so that they can

fulfill their role as an officer of the court and can give

their best in the administration of justice, that the

impugned rule has been enacted by the State Legislature.

The High Court also has referred to and relied on this

judgment.

With this background we proceed to consider merits of

the contentions raised by the respective parties.

There appeared to be difficulty for the Advocates even

to take up teaching of law as full time employees. The

Central Government in exercise of the powers conferred by

Section 49-A of the Act framed the Advocates (Right To Take

Up Law Teaching) Rules, 1979. As per Rule 3 of the said

Rules, a practicing Advocate has a right to take up teaching

of law in any educational institution affiliated to

university so long as teaching of law does not exceed three

hours a day and such employment may be deemed to be a part

time employment.

Since the terms of appointment, nature of duties and

service conditions relating to the appellant have also

bearing in resolving the controversy, it is considered

appropriate to briefly refer to them. By the Memorandum

dated 24.6.1976, the appellant was appointed for the first

time by the Board to the post of Assistant (Legal) in the

pay-scale of Rs. 225-15-300-20- 500 + 50 per month as

special pay. In the said Memorandum, it is stated that the

post was temporary and his services were liable to be

terminated at any time without any reasons being assigned

to; his confirmation in the permanent vacancy depended

inter alia on his work and conduct and he will have to serve

anywhere in the organization of Himachal Pradesh State

Electricity Board. The appellant accepting these terms of

appointment, joined service of the Board. By the Office

Order dated 6.9.1983, the Board was pleased to allow the

appellant, Law Officer, Grade-II to act as Advocate of the

Board in the existing scale of Rs. 700-1200/-. The Board

was further pleased to order that the expenditure for

getting enrolment as an Advocate shall be borne by the

Board. In response to the application made for the

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enrolment of the appellant as an Advocate, the Secretary of

the respondent by a letter dated 28.3.1984 informed the

appellant that the Office Order dated 6.9.1983 of the Board

did not meet the requirements of the Rules and that he first

be designated as Law Officer. Accordingly the Board, by its

order dated 11.6.1984 modifying its earlier order dated

6.9.1983, declared him as Law Officer of the Board in the

existing pay-scale. The Board passed one more order on

5.7.1984 changing the designation of the post of Law

Officer (Grade-II) as Law Officer with immediate effect

and appointed the appellant as Law Officer in the existing

pay scale. In the said order it is also stated that by

virtue of the said appointment the appellant shall be

required to act and plead in any court of law on behalf of

the Board. It is only thereafter, the appellant was

enrolled as an advocate on 9.7.1984 by the respondent. By

the Office Order dated 8.5.1991 the Board promoted him as

Under Secretary (Law)-cum-Law Officer in the given pay-scale

purely on ad hoc basis making it clear that the said ad hoc

promotion would not confer any right on the appellant to

claim seniority in that Grade. In the said order it is also

stated that he will continue to work in the Legal Cell of

the Secretariat of the Board. He was promoted on 14.1.1993

on the recommendation of Class-I Departmental Promotion

Committee on officiating basis in the pay-scale of

Rs.3000-4500 plus Rs.400 as special pay per month indicating

that he would continue to work in the same Legal Cell. By

order dated 30.1.1995 the Board again promoted him as Deputy

Secretary (Law)-cum-Law Officer in the pay-scale of

Rs.3700-5000 plus Rs.400 as special pay per month purely on

ad hoc basis with the other conditions remaining the same.

This Court on 10.8.2000 passed the following order:-

During the course of hearing, a question arose as to

whether the appellant, while serving on full time basis with

Himachal Pradesh State Electricity Board, is confining his

work only to acting as an Advocate for and on behalf of the

Board, including appearances in the Court, or has some other

duties also assigned to him in his capacity as Deputy

Secretary-cum-Law Officer. Mr. V.A. Bobde, learned senior

counsel appearing on behalf of the appellant submits that

since this issue never arose before, he shall have to seek

instructions and file an appropriate affidavit supported by

relevant documents. Four weeks time, as prayed for, is

granted for the purpose. An advance copy shall be furnished

to the learned counsel opposite who will have four weeks

thereafter to file response, if any.

List after nine weeks.

Pursuant to the said Order, the appellant has filed

the affidavit on 12.09.2000. The affidavit shows that he

was further promoted as Additional Secretary (Law). In the

affidavit he has stated that his duties with the Board right

from Law Officer to Additional Secretary (Law) have been

exclusively those of an Advocate and he had been personally

appearing before various courts. It is also stated that he

was/is heading Legal Cell/Law Section, the duties in respect

of which were stipulated in the Regulation of Business

issued by the Board on April 4, 1974 which were amended in

February, 2000. As far as the Legal Cell was concerned,

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they remained the same. Regulation of Business relating to

C-Legal are as follows:-

25. Every wing of the Board shall consult Law

Section, whenever it is proposed to:-

(i) issue a statutory regulation, notification or

order, or

(ii) sanction under a statutory power the issue of any

regulation, by law, notification or order by a subordinate

authority; or

(iii) submit to Government any draft statutory

regulation, notification or order for issue by them; the

draft shall be referred to the Law Section for opinion and

advice.

26.(1) All Sections shall consult the Legal Section on

:-

(a) any general legal principles arising out of any

case and;

(b) the construction of statutes, Arts, Regulation,

Statutory Orders and notifications etc. etc.

(c) the institution or withdrawal of any prosecution

or other legal/quasi legal proceedings including

arbitration, taxation proceedings, engagement of counsels,

their fee, etc. etc.

(d) all documents having legal implications, except

routine matters, may only be accepted after legal scrutiny.

(2) All such references shall be accompanied by an

accurate statement of the facts of the case and the point or

points on which the advice of the Legal Section is desired.

Looking to the various appointment/promotion orders

issued by the Board to the appellant and Regulation of

Business relating to Legal Cell of the Board aforementioned,

we can gather that :-

(1) the appellant was a full time salaried employee at

the time of his enrolment as an Advocate and continues to be

so getting fixed scales of pay;

(2) he is governed by the conditions of service

applicable to the employees of the Board including

disciplinary proceedings. When asked by us, the learned

counsel for the appellant also confirmed the same;

(3) he joined the services of the Board as a temporary

Assistant (Legal) and continues to head the Legal Cell after

promotions, a wing in the Secretariat of the Board;

(4) his duties were/are not exclusively or mostly to

act or plead in courts; and

(5) promotions were given from time to time in higher

pay- scales as is done in case of other employees of the

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Board on the basis of recommendation of Departmental

Promotion Committee.

On a proper and careful analysis, having regard to the

plain language and clear terms of Rule 49 extracted above,

it is clear that: -

(i) the main and opening paragraph of the Rule

prohibits or bars an advocate from being a full time

salaried employee of any person, Government, firm,

corporation or concern so long as he continues to practice

and an obligation is cast on an Advocate who takes up any

such employment to intimate the fact to the concerned Bar

Council and he shall cease to practice so long as he

continues in such employment;

(ii) para 2 of the Rule is in the nature of an

exception to the general Rule contained in main and opening

paragraph of it. The bar created in para 1 will not be

applicable to Law Officers of the Central Government or a

State or any public corporation or body constituted by a

statute, if they are given entitlement under the Rules of

their State Bar Council. To put it in other way, this

provision is an enabling provision. If in the Rules of any

State Bar Council, a provision is made entitling Law

Officers of the Government or authorities mentioned above,

the bar contained in Rule 49 shall not apply to such Law

Officers despite they being full time salaried employees;

(iii) not every Law Officer but only a person who is

designated as Law Officer by the terms of his appointment

and who by the said terms is required to act and/or plead in

courts on behalf of his employer can avail the benefit of

the exception contained in para 2 of Rule 49.

It is an admitted position that no rules were framed

by the respondent entitling a Law Officer appointed as a

full time salaried employee coming within the meaning of

para 3 of Rule 49 to enroll as an Advocate. Such an

enrolment has to come from the rules made under Section

28(2)(d) read with Section 24(1)(e) of the Act. Hence it

necessarily follows that if there is no rule in this regard,

there is no entitlement. In the absence of express or

positive rule, the appellant could not fit in the exception

and the bar contained in the first paragraph of Rule 49, was

clearly attracted as rightly held by the High Court. Added

to this, in the light of terms of appointment/promotion

orders issued by the Board to the appellant, it is clear

that the first appointment of the appellant was as Assistant

(Legal). Subsequent promotions as Under Secretary

(Legal)-cum-Law Officer, Deputy Secretary (Legal)-cum-Law

Officer and Additional Secretary (Law) show that the

appellant was not designated as Law Officer. Similarly,

there is no indication in any of the appointment/promotion

orders issued to the appellant that he was to act or plead

in the courts of law on behalf of the Board except in the

order dated 5.7.1984. At any rate from these orders it

cannot be said that he was/is required to act or plead in

courts on behalf of the employer mainly or exclusively so as

to come within the meaning of Law Officer for the purpose

of Rule 49. It appears the modified orders dated 11.6.1984

and 5.7.1984 were issued by the Board in order to get

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enrolment of the appellant as an advocate on the roll of the

respondent. None of the appointment/promotion orders issued

to the appellant indicate that his duties were exclusively

to act or plead in courts on behalf of the Board as Law

Officer. These orders clearly show that the appellant was

required to work in the Legal Cell of the Secretariat of the

Board; was given different pay scales; rules of seniority

were applicable; promotions were given to him on the basis

of the recommendations of the Departmental Promotion

Committee; was amenable to disciplinary proceedings, etc.

Further looking to the nature of duties of Legal Cell as

stated in the regulation of business of the Board extracted

above, the appellant being a full time salaried employee

had/has to attend to so many duties which appear to be

substantial and pre-dominant. In short and substance we

find that the appellant was/is a full time salaried employee

and his work was not mainly or exclusively to act or plead

in court. Further there may be various challenges in courts

of law assailing or relating to the decisions/actions taken

by the appellant himself such as challenge to issue of

statutory regulation, notification or order; construction

of statutory regulation, statutory orders and notifications,

the institution/withdrawal of any prosecution or other

legal/quasi legal proceedings etc. In a given situation the

appellant may be amenable to disciplinary jurisdiction of

his employer and / or to the disciplinary jurisdiction of

the Bar Council. There could be conflict of duties and

interests. In such an event, the appellant would be in an

embarrassing position to plead and conduct a case in a court

of law. Moreover, mere occasional appearances in some

courts on behalf of the Board even if they be, in our

opinion, could not bring the appellant within the meaning of

Law Officer in terms of para 3 of Rule 49. The decision

in Sushma Suri vs. Govt. of National Capital Territory of

Delhi and Another , in our view, does not advance the case

of the appellant. That was a case where meaning of

expression from the Bar in relation to appointment as

District Judge requiring not less than seven years standing

as an Advocate or a pleader came up for consideration. The

word Advocate in Article 233(2) was held to include a Law

Officer of Central or State Government, public corporation

or a body corporate who is enrolled as an Advocate under

exception to Rule 49 of Bar Council of India Rules and is

practicing before courts for his employee. Para 10 of the

said judgment reads :- Under Rule 49 of the Bar Council of

India Rules, an advocate shall not be a full-time employee

of any person, Government, firm, corporation or concern and

on taking up such employment, shall intimate such fact to

the Bar Council concerned and shall cease to practise as

long as he is in such employment. However, an exception is

made in such cases of law officers of the Government and

corporate bodies despite his being a full-time salaried

employee if such law officer is required to act or plead in

court on behalf of others. It is only to those who fall

into other categories of employment that the bar under Rule

49 would apply. An advocate employed by the Government or a

body corporate as its law officer even on terms of payment

of salary would not cease to be an advocate in terms of Rule

49 if the condition is that such advocate is required to act

or plead in courts on behalf of the employer. The test,

therefore, is not whether such person is engaged on terms of

salary or by payment of remuneration, but whether he is

engaged to act or plead on its behalf in a court of law as

an advocate. In that event the terms of engagement will not

matter at all. What is of essence is as to what such law

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officer engaged by the Government does whether he acts or

pleads in court on behalf of his employer or otherwise. If

he is not acting or pleading on behalf of his employer, then

he ceases to be an advocate. If the terms of engagement are

such that he does not have to act or plead, but does other

kinds of work, then he becomes a mere employee of the

Government or the body corporate. Therefore, the Bar

Council of India has understood the expression advocate as

one who is actually practicing before courts which

expression would include even those who are law officers

appointed as such by the Government or body corporate.

[emphasis supplied]

As stated in the above para the test indicated is

whether a person is engaged to act or plead in a court of

law as an Advocate and not whether such person is engaged on

terms of salary or payment by remuneration. The essence is

as to what such Law Officer engaged by the Government does.

In the present case on facts narrated above relating

to his employment as well as in the absence of rule made by

the respondent entitling a Law Officer to enroll as an

Advocate despite being a full time salaried employee, the

appellant was not entitled to enrolment as an advocate.

Hence, the appellant cannot take benefit of the

aforementioned judgment.

The argument of the learned senior counsel for the

appellant was that what is not prohibited may be taken as

permitted and when the appellant satisfied the requirements

of Section 24, he was entitled for enrolment. This argument

overlooks a positive requirement as already stated above

contained in para 2 of Rule 49 that unless a concerned State

Bar Council has framed rules entitling Law Officers to

enroll as Advocates even though they are full-time

employees, they are not entitled to enrolment. The

contention that the respondent could not have cancelled

enrolment of the appellant almost after a decade and half

and that the respondent was estopped from doing so on the

principle of promissory estoppel, did not impress us for the

simple reason that the appellant suffered threshold bar and

was not at all eligible to be enrolled as an Advocate and

his enrolment itself was clearly contrary to Rule 49 of the

Rules in the light of the facts stated above. Hence neither

the principles of equity nor promissory estoppel will come

to the aid of the appellant. Similarly, there is no

substance in the argument of the learned counsel for the

appellant that removal of the name of the appellant from the

roll of the State Bar Council amounted to a punishment under

Section 35(d) of the Act without following procedure. It is

clear from the facts of the case that action was not taken

against the appellant on the ground of misconduct by

initiating any disciplinary proceedings. But in this case

the very enrolment of the appellant as an advocate itself

was contrary to law and he was not at all entitled for

enrolment. By cancellation or withdrawal of enrolment

things were only set right and the mistake committed on

misunderstanding was corrected.

We find no merit in the ground urged that the

appellant was discriminated against the prosecutors and the

Government pleaders. The duties, nature of work and service

conditions of the appellant, details of which are already

given above, are substantially different from the duties and

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nature of work of prosecutors and Government pleaders

particularly in relation to acting and pleading in court.

Thus the appellant stood on a different footing. The High

Court in paragraphs 24-26 has dealt with this aspect of the

case and rightly rejected the argument based on the ground

of discrimination.

The last and alternative submission of the learned

counsel for the appellant was that in case the appellant

gives up his full time employment or ceases to be employee

of the Board, he may be allowed to practice maintaining his

seniority as an advocate from the date of his enrolment on

the rolls of the respondent; if the enrolment is cancelled

or withdrawn he would lose the seniority for no fault of

him. There is a difficulty in accepting this argument.

When the appellant was not entitled for enrolment and his

enrolment itself was opposed to law, such enrolment was

non-est. Hence the question of maintaining his seniority on

the rolls of the respondent does not arise. However, we

make it clear that in case the appellant resigns or ceases

to be a full time employee of the Board, it is open to him

if so desired to apply afresh for enrolment as an advocate.

This order does not stand in the way of the appellant

seeking enrolment if he is otherwise eligible and entitled.

In the light of the facts stated and discussions made

above, we do not find any merit in this appeal. Hence it is

dismissed. No cost.