UNION OF INDIA & ORS. v. RAJPAL SINGH

Citation: [2008] 15 S.C.R. 879

Court: Supreme Court of India

Bench: C.K. THAKKER, D.K. JAIN

Case summary

UNION OF INDIA & ORS. v. RAJPAL SINGH.pdf

Judgment text

[2008] 15 S. C. R. 879 UNION OF INDIA & ORS. v. RAJPAL Sll\IGH (Civil Appeal No. 6! >87 of 2008) NOVEMBER 7·, 2008 ·. . B · [C. K. THAKKER AND ·o. K. JAIN, JJ. ] Army Service:. Army Rules, 1954; r. 13(2A), 13(3)(i), (iifand (iii): Junior Commissioned Officer placed in low medical category (Permanent) - Incumbent expressing his willingness to continue in service - Release Medical Board recommending discharge of incumbent from service :... Challenge to - High Court holding discharge of incumbent illegal in terms of r. 13(3)(i)(ii) of the Rules since it was done without the recommendations/holding of Invalidating Board . - Review Petition dismissed by High Court - Correctness of - Held: For discharge on medical 9rounds, clause (/)(//) of · the table appended to r. 13 of the Rules clearly and unambiguously stipulates that discharge in such cases.

has to be carried out only as per recommi9ndations of Invalidating Board - Authorities bound to follow the prescribed rule while discharging army personnel from service on medical grounds - Order of discharge passed by the authority without subjecting the incumbent to Invalidating Board, would fall foul of the prescribed statutory rule - Although, discharge is purportedly shown to be also on account of non-availability of sheltered appointment but the main ground for discharge was on account ofpermanent low mecfical category- Hence, the High Court rightly held that the discharge was not in accordance with the prescribed procedure and, therefore, illega. 1- Interpretation of Statutes -Army Act, 1950- s. 191. of the Table, appended to the rule 13, the manner of discharge is clearly laid out.

It is plain that a discharge on the ground of having been found "medically unfit for further service" is specifically dealt with in Column (I) (ii) of the Table, which stipulates that discharge in such a case is to be carried out only on the recommendation of 8 the Invalidating Board. [Paira 18] [895-E-H; 896-A-C] 1:3. It is well settled rule of administrative law that an executive authority must be rigorously held to the standards by which it professes its actions to be judged and it must scrupulously ,observe those standards on pain of invalidation of an act in violaticm of them. [Para 20] [896-F] Vitera/Ii vs. Saton 359 U. S. 535: Law Ed (Second series) 1012, referred to. o 1. 4. It is a cardinal principle of interpretation of Statute that only those cases or situations can be covered under a residual ht~ad, which are not covered under a specific head.

It is, therefore, clear that only those cases of discharge would fall within the ambit of the residual head, which are not covered under the preceding specific heads. In other words, if a Junior Commissioned Officer is to be discharged from the service on the ground of "medically unfit for further service", irrespective of the fact whether he is or was in a low medical category, his order of discharge can be made only on the recommendation of an Invalidating Board. The said rule being clear and unambiguous is capable of only this interpretation and no other. [Para 18] [895-H; 896- A, B, C] 1. 5. This Court is in complete agreement with the High Court that where a JCO is sought to be discharged on the ground of medical unfitm~ss for further service, his case has to be dealt with strictlly in accordance with the procedure contemplated in Clause I (ii) in Column 2 of the · . Table appended to r. 13 of the Rules. Any order of · discharge passed without subjecting him to Invalidating .

Board would fall foul of the said statutory rule. [Para 22] . [897-E-F] . . · . '· t. 6. Appellants were bound to follow Rule 13 (3) (I) 8 (ii),; more. so having placed the. respondent in low medical . category (permanent) for a, period ·of two years from October; . 2001 he was discharged from service on 31st August, 2002, relying on the recommendation of the,:Recategorisation Board held on 24th October, 2001. As noted in the show cause notice, the said Board had placed the respondent in "permanent low medical category". Be that as it may, the main ground of discharge being medical ·unfitness for further service, the appellants were bound to follow the prescribed rule. [Para 19] [896- D-E] . . Sukhdev Singh & Ors. vs. Bhagatram. Sardar Singh . Raghuvanshi & Anr. , (1975) 1 SCC . 421; Dr. Amarjit Singh Ahluwaliavs. The State of Punjab & Ors. , (1975) 3 SCC 503 and· Ramana Dgyaram Sheffy vs. International Ali. port · Authority oflndia & Ors. , (1979) 3 SCC 489, referred to; 1. 7.

This Court. is· convinced that although the discharge is purportedly shown to be also 011 account of non-availability of a sheltered appointment, the main )... __ . F ·ground for discharge was undoubtedly on account of permanent low m~dical category i. e. medical. unfitness. In · · that view of the matter, the order of discharge of the respondent would not fall under the residual ground, namely, I (iii) in Column 2 of the Table appended to r. 13 of the Rules. [Para 23] [898-B-,C] · ; . ·· . · 2. 1 .. It is manifest that Arniy Order No. 4611980 has . been issue,d for disposal of permanent low medical ·~ •• ·category. personnel and merely contemplates that the employment of permanent low medical category personnel at all times, is subject to the availability of UNION OF INDIA & ORS. 11. RAJPAL SINGH 883 \ saitable alternative appointments commensurate with their medical catggories and al:;o subject to the conditions that such a sheltered appointment can be justified in the .

public in·terest. A plain reading of the Army Order shows . that it comes into operation after an opinion has been formed as ·to whether a particular personnel is to be retained in service or not, if so for what period. If a person is to be retained in service despite his low medical category for a particular period as stipulated in the Army Order, the question of subjecting him to Invalidating Board may not arise. However, if a person is to be discharged on the ground of mudical unfitness, at that stage of his tenure of service or 1~xtended service within the meaning of the Army Order, he has to be discharged as per the procedure laid down in Clause I (ii) in Column 2 of the Table appended to r. 13 of the Rules. Similarly, 0 Sub-rule (2A) of r. 13, heavily relied upon by the appellants does not carry the case of the appellants any further.

It is only an enabling provision to authorise the colJlmanding officer to discharge f'rom service a person or a class of persons in respect whereof a decision has · been taken by the Central Government or the Chief of Army Staff to dis~harge him from service either unconditionally. or on the fulfilment of certain specified conditions. The said provision is not in any way in conflict . with the scope of the remaining part 1of r. 13 of the Rules, so as to give it an overriding effect, hieing a non obstante provision. [Para 26] [900-H; 901-A-F] 2. 2. For the foregoing reasons, this Court wholly agrees with the. reasoning and the conclusion of the High Court that the discharge of the respondent was not in accordance with the prescribed procedure and was, therefore, illegal. No illegality or infirmity is found in the • t impugned judgment/order, warranting interference of this Court. [Para 27] [901-G] Case Law Reference: 359 U. S. 535: Law Ed referred to.

Para 20 · (Second series) 1012 (1975) 1 sec 421 referred to Para 21 (1975) 3 sec 503 referred to Para 21 )_, (1. 979) 3 sec 489 referred to Para 21 " CIVIL APPELLATE JURISDICTION : Civil Appeal. No. 6587 of 2008. From the final Judgment and Order dated 7. 10. 2005 & 25~ 1. 2007 of the High Court of Delhi at New Delhi in WP No. 2745 of 2003 & RP No. 307 of 2006 in WP (C) No. 2745 of .. 2003 respectively. WITH SLP (C) Nos. 14338-14339 & 15430 of 2008. Vikas Singh, ASG. , C(jlin Gonsalves, S. Wasim A. Qadri, Shiva Lakshmi Singh, . Udita Singh, Amrita Narayan, D. S. Mahra, B. I ,(. p~rarnount consideration and there cannot'"be ah}rcomp'romise on that score. It is with this object in view, the Legislature has enacted the Army Act, 1950; · the Armed Forces Medical Services Act, 1983 and framed the Rules. Army Orders are also issued from time to time in order to give effect to these statutory provisions in letter and spirit.

As per the procedure detailed in the written submissions, filed on behalf of the appellants, annual or periodic medical examination of the army personnel is done on certain specific norms. The medical status of an army personnel is fixed on the basis of these norms, containing five components viz. (a) psychology (b) hearing (c) appendarist (d) physical and (e) eye - which is collectively known as SHAPE. The medical status • J 6. (1981) 1 sec 485. ·~ I SHAPE is again characterised in five components known as:- SHAPE I-physically fit for all purposes. SHAPE II & SHAPE Ill-not fit for certain duties and are required not to undertake strain. SHAPE IV-those who are in hospital for certain ailments + and SHAPE V-unfit for further service of the Army. 14. It is pointed out that army personnel are put in the aforementioned medical categories i. e.

SHAPE on the basis of periodical Medical Board which is held for an individual after the age of 35 years and thereafter at an interval of every 5 years. If the army personnel is in SHAPE I, he is not required to "1( undergo further Medical Board except annual medical • examination. However, the army personnel who is placed in SHAPE II and SHAPE Ill on the annual medical examination, he is placed in low medical category (temporary) for a period of six months. After six months, he is placed before the Review Medical Board and if at the end of six months, his category remains unchanged, that category is awarded to him _on permanent basis and he is placed in "low medical category (permanent)". After award of low medical category (permanent), J /. the army personnel is placed before the Review Medical Board. after every two years. In Review Medical Board, the medical category of the personnel may be changed keeping in view the change in any component of SHAPE.

Thus, SHAPE II or • SHAPE Ill may be placed in SHAPE 1. also and vice versa. It is the say of the appellants that the release of certain medical category (permanent) personnel is regulated by Army Order No. 46 of 1980, which contemplates that the army personnel, ;... who is placed in low medical category (permanent), is to be ·. I retained in service for a minimum period of 15 years (for Sepoy) and 20 years (for JCO) and during this period he is entitled to all promotions as per the rules; the discharge of low medical ;f r- A. category is regulated as per the above-mentioned Army Order and before the discharge, the personnel is placed before the "Release Medical Board" for a mandatory examination before the order of discharge is passed.

An army personnel who is categorised as SHAPE V is considered to be not fit for further service of the Army and on placing such a personnel in SHAPE V he is mandatorily brought before Invalidating Board in terms +- ,__ of Rule 13 (3), whereas an army personnel who is in SHAPE II l . or in SHAPE 111, is to undergo different Medical Boards apart from annual medical examination. T. he said personnel are not totally unfit but at the same time they are not fit for all the army I duties and, therefore, they are retained for 15 years or 20 years, as the case may be, on the sheltered post mandatorily. 15. Having noticed the basic parameters which are applied for categorisation of the physical status of the army personnel, it will be useful to briefly refer to relevant statutory provisions. ~ . I 16. Chapter IV of the Army Act, 1950 (for short 'the Act') deals with the conditions of service of the army personnel.

Section 18 of the Act provides that every person subject to the Act shall hold office during the pleasure of the President. Section 19 clothes the Central Government with the power of dismissal or removal from service any person covered under the Act subject to ttie provisions of the Act and the Rules and ' ~> Regulations made thereunder. Section 2S . provides for dismissal, removal or reduction by the Chief of the Army Staff and by other officers. Section 22 of the Act provides for retirement, release or discharge lrom the service by such authority and in such manner as may be prescribed. Sub. : Section (xix) cf Section 3 of the Act states that 'prescribed' ~' means prescribed by rules made under the Act. Section 191 . __ ' empowers the Central Goyernment to make rules as regards L removal, retirement, release or discharge from the service of _J. \t,persons subject to the Act.

Pursuant to and in furtherance of the power conferred on the Central Government under Section f 191 of the Act, the Central Government framed the Rules. 17. Rule 13 which is the pivotal provision reads thus: "13. Authorities empowered to authorise discharge. -(1) Each of the authorities specified in column 3 of the Table below, shall be the competent authority to discharge from service person subject to the Act specified in column 1 thereof on the grounds specified in column 2. -+ (2) Any power conferred by this rule on any of the aforesaid authorities shall also be exercisable by any other authority superior to it.

[(2A) Where the Central Government or the Chief of the Army Staff decides that any person or class or persons subject to the Act should be discharged from service, either unconditionally or on the fulfillment of certain specified ~ conditions, then, notwithstanding anything contained in this rule, the Commanding Officer shall also be the competent authority to discharge from service such person or any person belonging to such class in accordance with the said decision.

] (3) In this table "commanding officer" means the officer commanding the corps or department to which the person to be discharged belongs except that in the case of junior commissioned officers and warrant officers of the Special -~ Medical Section of the Army Medical Corps, the "commanding officer" means the Director of the Medical Services, Army, and in the case of junior commissioned officer and warrant officers of Remounts, Veterinary and Farms, Corps, the "Commanding Officer" means the Director Remounts, Veterinary and Farms. ! GI I• jJ.. J . )-. \ TABLE Category Grounds of Competent Manner of discharge authorify to discharge authorise discharge 1 2 3 4 Junior l. (i)(a) On completion Commanding Commissioned of the period of service Officers Officers or tenure specified in . \ the Regulations for his rank or appointment; are on reaching ~ .. the age limit whichever is earlier, unless trainee on the active list fpr ....

further specified period with the sanction of the Chief of the Army ·~ Staff or on becoming r eligible for release r- ' under the Regulations. (b) At his own Cornman. ding request on transfer Officer to the pension .. establishment (ii) Having been Commanding To be carried out found medically Officer only on the unfit for further recommendation service. of an Invalidating Board. (iii) All other classes (a) In the case If the discharge -0f discharge. of Junior is not at the Commissioned request of the J Officers Junior \ granted Commissioned ... direct Officer the ', commissions competent during the authority before first 12 sanctioning the -4 \... months discharge shall if Iservice Area/ the circumstan- ~ Divisional ces of the ease } Commander permit give the - Junior ( comirnssioned Officer concerned an opportunity to show cause against the order of discharge.

(b) In the case of JCOs, not · covered by (a), serving in any Army or Command the General Officer Commandingin-Chief of that Army or command if not below the ... rank of Lie•Jtenant General. (c) In any other case the Chief of the Army Staff. " 18. The afore-extracted Rule 13 (1) clearly enumerates the authorities competent to ~ischarge from ser-Vice, the specified person; the grounds of discharge and the manner of discharge. . It is manifest that when in terms of this Rule an army personnel is discharged on completion of service or tenure or at the request of the person concerned, no specific manner of discharge is prescribed. Naturally, the Regulations or Army Orders will take care of the field not covered by the Rules. However, for discharge on other grounds, specified in Column (2) of the Table, appended to the Rule, the manner of discharge is clearly laid out.

It is plain that a discharge on the ground of 6 having been found "medically unfit for further service" is specifically dealt with in Column (I) (ii) of the Table, which stipulates that discharge in such a case is to be carried out only on the recommendation of the Invalidating Board. It is a cardinal principle of interpretation of a Statute that only those cases or situations can be covered under a residual head, which are not covered under a specific head. It is, therefore; clear that only· those cases of discharge would fall within the ambit of the . residual head, viz. I (iii) which are not covered under the preceding spedfic heads. In other words, if a JCO is to be discharged from the service on the ground of "medically unfit for further service';, irrespective of the fact whether he is or was in a low medical category, his order of discharge can be made· only on the recommendation of an Invalidating Board. The said rule being clear and unambiguous is capable of only this !

nterpretation and no other. 19. Having reached the said conclusion, we feel that the appellants were bound to follow Rule 13 (3) (I) (ii), more so • having placed the respondent in low medical category ( (permanent) for a period of two years from October, 2001 he was discharged from service on 31st August, 2002, relying on the recommendation of the Re-categorisation Board held on 24th October, 2001. As noted in the show cause notice, extracted above, the said Board had placed the respondent in "permanent low medical category". Be that as it may, the main I• . · ground of discharge being medical unfitness for further service, the appellants were . bound to follow the prescribed rule. · 20. It is well settled rule of administrative law that an executive authority must be rigorously held to the standards by which it professes its actions to be judged and it must . scrupulously observe those standards on pain of invalidation of an act in violation of them.

This rule was enunciated by 7 Justice Frankfurter in Vitera/Ii Vs. Saton , where the learned Judge said: "An executive agency must be rigorously held to the standards by which it professes its action to be judged... Accordingly, if dismissal from employment is based on a defined procedure, even though generous beyond the 7. 359 U. S. 535 : Law Ed (Second series) 1012. ~ -----{ ~ r requirements that bind such agency, that procedure must be scrupulously observed ... This judicially evolved rule of administrative law is now firmly established and, if I may add, rightly so. He that takes the procedural sword shall perish with that sword. " 21. The afore-extracted observations were approved and . + followed in Sukhdev Singh & Ors. Vs. Bhagatram Sardar 8 Singh Raghuvanshi & Anr. and then again in Dr. Amarjit 9 Singh Ahluwalia Vs. The State of Punjab & Ors. wherein, speaking for a three-Judge Bench, P. N. Bhagwati, J. had observed that though the above view was not based on the 24.

That takes u~ to the next question whether the case of the respondent for discharge could be dealt with in accordance with Army Order 46 of 1980, de hors Rule 13, as contended . by the. appellants. 0 25. Relevant porti. on of the said order reads as follows: ''AO 46/80 Disposal of Permanent Low Medical Category Personnel other·th<m Officers . · · · . Aim t. The aim of this Army Order is to lay down implementation instructions for the disposal of permanent ·~. low medical category JCOs/OR in terms of Min of Def Letter No. A/32395Nlll/Org 2 (MP) (c)/713-S/A/D (AG) dated 10 May; 77 as amended vide Corrigendum No. Al 32395/X/Org 2 (MP) (c)/7167/A/D (AG) dated 26 Nov 79, reproduced as Appendice 'A' and 'B' respectively to this order. Retention 2.

General Principles (a)The employment of permanent low medical category personnel, at all times, is subject to the r f availability of suitable alternative appointments commensurate with their medical category and also to the proviso that this can be justified in the public interest, and that their retention will not exceed the sanctioned strength ·of the regiment/ corps. When such an appointment is not available 8 or when their retention is either not considered ,.. ,.. necessary in the interest of the service or it exceeds the sanctioned strength of the regiment/ corps, they will be discharged irrespective of the service put in by them. (b) Orqinarily, permanent low medical category /, personnel will be retained in service till completion of 15 years service in the case of JCOs and 10 , years in the case of OR (including NCOs}/, ..

"'T However, such personnel may continue to be retained in service beyond the above period until they become due for discharge in the normal manner subject to their willingness and the fulfilment of the stipulation laid in Sub Para (a) above. 3. All personnel retained in service in terms of Para 2 above will, under all circumstances, be discharged on completion of their engagement periods/retiring service ..... limits. For this purpose, NCOs and JCOs will be treated as under:- (a) NCOs ~ill be discharged on completion of the retiring- service limits appropriate to ranks as opposed to the extended limits laid down in AO 13/ 77. However, their retention-beyond the contractual ~ period of engagement will be regulated under the provisions of Paras 144 to 147 of Regulations for · ·~ / the Army 1962. (b) JCOs will be discharged on completion of the normal retiring service limits as opposed to the extended limits laid down in AO 13/77. 4. Personnel suffering from pulmonary tuberculosis, ·..

including those who may be cured of the . disease, will be disposed of in accordance with the provisions of Min of Def letter No. 22679/DGAFMS/DG-3N2721/D(ME:- dated 'B . 18 Jul 74 (reproduced in AO 150/75), as amended/ amplified from time to time. 5. Cases of all permanent low medical category personnel wilt be reviewed by all concerned accordingly. In the case of those personnel who become due for discharge as per the instructions contained in the preceding paragraphs, immediate action will be taken in the normal manner to carry of their discharge, as expeditiously as possible. . . 6. This order only lays down the general policy and procedure with regard to the disposal of permanent Jaw medical category personnel. The actual discharge will, however, be carried out in accordance with the provisions of Min of Def letter No. N323~5Nlll/Org 2 (MP) (c)/713- S/a/D (AG) dated 10 May 77 •· as amended vide Corrigendum No.

N32395/X/Org (MP) (c)/7167/ND (AG) dated 26 Nov 79 (reproduced as Appendices 'A' and 'B' respectively) and this HQ letter No. 8861/AG/PS 2 (c) dated 18 Aug 64, read with letter No 8861/A(3/PS 2(c) · dated 26 Mar/1 Apr 70. 7. Cases of permanent. lowmedical category personnel already decided under the existing provisions, will not be re-opened. 8. This supersedes all previous . instructions on the .. . I subject. N32395/X/Org 2(MP)" 26. It is manifest that the said Army Order has been issued for disposal of permanent low medical category personnel and --~· t merely contemplates that the employment of permanent . low medical category personnel at all times, is subject to the availability of suitable alternative appointments commensurate with their medical categories and ~lso subject to the conditions that such a sheltered appointment can be justified in the public interest.

A plain reading of the Army Order shows that it comes into operation after an opinion has been formed as to whether _.... a particular personnel is to be retained in service or not, if so for what period. If a person is to be retained in service despite his low medical category for a particular period as stipulated in the Army Order 46 of 1980, the question of subjecting him ' to Invalidating Board may not arise. However, if a person is to be discharged on the ground of medical unfitness, at that stage of his tenure of service or extended service within the meaning of the Army Order, he has to be discharged as per the procedure laid down in Clause I (ii) in Column 2 of the said -... ,.. - Table: Similarly, Sub-rule (2A) of Rule 13, heavily relied upon ~ by the appellants does not carry the case of the appellants any further.

It is only an enabling provision to authorise the commanding officer to discharge from service a person or a class of persons in respect whereof a decision has been taken . E by the Central Government or the Chief of Army Staff to discharge him from service either unconditionally or on the -1 fulfilment of certain specified conditions. The said provision is not in any way in conflict with the scope of the remaining part ~ of Rule 13, so as to give it an overriding effect, being a non obstante provision. 4 I 27. For the foregoing reasons, we wholly agree with the '· reasoning and the conclusion of the High Court that the • discharge of the respondent was not in accordance with the prescribed procedure and was, therefore, illegal. We do not find any illegality or infirmity in the impugned judgment/order, warranting our interference. The appeal, being devoid of any yr merit, is dismissed accordingly with costs. ( ~ ... , SLP (C) NOS. 14338-14339 OF 2008 & SLP (C) N0. 15430 OF 2008 28.

These tagged $pedal leave petitions have been preferred against the orders passed by the High Court, declining to grant interim relief to the-writ petitioners. Since the main issue now stands decided, there is no point in entertaining these petitions. AU the petitions are dismissed accordingly .. _ without observing anything on merits. It will be open to the High Court to now take up the main writ petitions for disposal in accordance with law. S. K. S. Civil Appeal and Special leave petitions dismissed. - )