VEERENNDRA KUMAR DUBEY Vs CHIEF OF ARMY STAFF
Bench: T.S. THAKUR,V. GOPALA GOWDA,R. BANUMATHI
Case number: C.A. No.-008914-008914 / 2015
Diary number: 32135 / 2013
Advocates: VARINDER KUMAR SHARMA Vs
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REPORTABLE
IN THE SUPREME COURT OF INDIA
CIVIL APPELLATE JURISDICTION
CIVIL APPEAL D.NO. 32135 OF 2013
Veerendra Kumar Dubey …Appellant
Versus
Chief of Army Staff & Ors. …Respondents
J U D G M E N T
T.S. THAKUR, J.
1. This appeal under Section 31 of the Armed Forces
Tribunal Act, 2007, is directed against a judgment and order
dated 14th December 2011 passed by the Armed Forces
Tribunal, Regional Bench at Lucknow whereby the Tribunal
has dismissed Transferred Application No.16 of 2011 filed by
the appellant in the process affirming an order of discharge
passed against the appellant by the competent authority
under Rule 13(III)(v) of the Army Rules, 1954.
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2. The appellant was enrolled as an Operator in the corps
of Artillery of Indian Army on 27th September, 1980. Having
served in that capacity for nearly 12 years, he received a
show cause notice pointing out that he had been awarded
four red ink entries for various offences set out in the notice
and that the appellant had become a habitual offender
thereby setting a bad example of indiscipline in the army.
The notice, on that premise, called upon the appellant to
show cause as to why he should not be discharged from
service under Army Rule 13(III)(v) read with Army HQ letter
No.A/15010/150/AG/PS-2(c) dated 28th December, 1988.
3. The appellant submitted a reply to the show cause
notice which does not appear to have cut any ice with the
competent authority resulting in his discharge by an order
dated 14th December, 1992. Aggrieved, the appellant
preferred an appeal before respondent No.2 which proved of
no avail. The authority in the meantime issued a discharge
order/certificate of service on 15th October, 1993 which the
appellant challenged in MP No.1980 of 1994 before the High
Court of Madhya Pradesh at Jabalpur. That petition was
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dismissed by the High Court on 18th January, 2006 on the
ground of lack of territorial jurisdiction aggrieved whereof
the appellant filed Writ Appeal No.429 of 2006 which came
to be transferred to the Armed Forces Tribunal, Regional
Bench, Lucknow and renumbered as Transferred Application
No.16 of 2011. The Tribunal by its order dated 14th
December, 2011 has now dismissed the transferred petition
giving rise to the present appeal.
4. The material facts are not in dispute. It is not in dispute
that the appellant had within a period of 12 years of the
service suffered as many as four red ink entries. All these
entries were awarded to him on account of overstaying leave
for a period ranging between 29 days to 66 days. The fourth
red ink entry was earned on account of a severe reprimand
awarded to him by the Commanding Officer in August, 1992.
It is noteworthy that the first red ink entry was made on 25th
July, 1982, the second on 28th December, 1985, the third on
13th September, 1991 and the last on 13th August, 1992. It is
also not in dispute that the appellant had filed a reply to the
show cause notice issued to him in which he had explained
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the reasons for his overstaying the leave period in 1982 and
attributed his failure to report back for duty to the medical
condition of his wife. In regard to the second red ink entry
he had offered an explanation based on his own illness and
treatment in the district hospital. So also he had offered
explanations for the other two red ink entries. These
explanations notwithstanding the competent authority
decided to discharge him from service without any enquiry
whatsoever.
5. Before the Courts below and so also before us, the
competence of the authority who discharged the appellant
was not questioned by the appellant. What was all the same
argued at considerable length by learned counsel for the
appellant was that the availability of power to discharge was
not enough. What was equally important is whether the
power was exercised in a fair and reasonable manner
keeping in view the guidelines which the Government had
issued for such exercise. It was contended that the
Government had prescribed the procedure for the removal of
undesirable and inefficient JCOs, WO and ORs in terms of a
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circular dated 28th December, 1988. The circular, it was
contended, postulates not only the issue of a show cause
notice to the individual concerned, but also a preliminary
enquiry before recommending his discharge or dismissal.
The individual concerned, it was argued, must have had an
adequate opportunity to offer his explanation and to produce
evidence in his defence. Not only that the enquiry ought to
conclude that the allegations stood substantiated warranting
termination of service of the delinquent. The fact that
discharge from service, consequent upon an individual
earning four red ink entries is not mandatory. This,
according to the learned counsel, was evident from a plain
reading of the procedure prescribed by the competent
authority. It was also submitted that while considering the
question of retention or discharge based on four red ink
entries, the Commanding Officer was duty bound to consider
not only the nature of the offences for which such entries
had been awarded but also take into consideration the long
service and the harsh conditions to which the individual had
been exposed during his tenure. Discharge can under the
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guidelines issued by the competent authority be ordered
only where it is absolutely necessary to do so. The
procedure prescribed by the competent authority for the
exercise of the power of discharge under Rule 13 was,
according to the learned counsel, observed but only in
breach thereby rendering the discharge of the appellant
illegal.
6. On behalf of the respondent it was contended by Mr.
Maninder Singh, Additional Solicitor General that Rule 13 of
the Army Rules did not provide for any specific procedure to
be followed for discharge of undesirable persons or habitual
offenders. The procedure prescribed for the exercise of the
power of discharge in terms of the circular relied upon by
the appellant was, according to the learned counsel,
directory and did not create any right in the individual
concerned to demand an enquiry in the matter. The
procedure was in any case de hors the provisions of Rule 13
of the Army Rules, hence un-enforceable. Reliance in
support was placed upon the decisions of this Court in
Union of India and Ors. v. Corporal A.K. Bakshi and
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Anr. (1996) 3 SCC 65, Union of India and Ors. v.
Rajesh Vyas (2008) 3 SCC 386, and Union of India and
Ors. v. Deepak Kumar Santra (2009) 7 SCC 370.
Reliance was also placed upon a recent decision of this Court
in Union of India v. Balwant Singh (Civil Appeal No.
5616 of 2015) and a three-Judge Bench decision in Union
of India and Ors. v. Harjeet Singh Sandhu (2001) 5
SCC 593 apart from a Division Bench decision of the High
Court of Delhi in Surinder Singh v. Union of India
(2003) 1 SCT 697.
7. Section 22 of the Army Act, 1950 provides that any
person subject to the said Act may be retired, released or
discharged by such authority and in such manner as may be
prescribed. Section 23 envisages the issue of a certificate on
termination of service to every junior commissioned officer,
warrant officer, or enrolled person, who is dismissed,
removed, discharged, retired or released from service.
Section 191 of the Act empowers the Central Government to
make rules for the purpose of carrying into effect the
provisions of the Act. The rules may, inter alia, provide for
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removal, retirement, or release upon discharge from service
of persons subject to the rule. The Government has in
exercise of that power framed Army Rules, 1953, Rule
13(III)(v) whereof applicable to the case at hand empowers
the Brigade and Sub Area Commander to direct such
discharge after giving to the person whose discharge is
contemplated, an opportunity to show cause against the
same provided the circumstances of the case permit the
grant of such opportunity. Rule 13 (1), (2), (2A), (3)(III)
and the Table below the same are extracted :
“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 fulfilment 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.
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(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.
TABLE Category Grounds of
discharge Competent authority to authorize discharge
Manner of discharge
1 2 3 4
Junior Commissioned officers
xxx xxx xxx xxx
Warrant Officer xxx xxx xxx xxx
Persons enrolled under the Act who have been attested
III. (i) On fulfilling the conditions of his enrolment or having reached the stage at which discharge may be enforced.
Commanding Officer in the case of a person of the rank of havildar (or equivalent rank) where such person is to be discharged. Otherwise than at his own request and where the commanding officer below the rank of Lieutenant Colonel, the brigade or sub Area Commander, (SRO 116/65
III. (ii) On Commanding Applicable to
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completion of a period of army service only, there being no vacancy in the Reserve
Officer (in case of the persons unwilling to extend their Army Service)
person enrolled for both Army service and Reserve Service. (A person who has the right to extend his Army service and wishes to exercise that right cannot be discharge under this head)
III (iii) Having been found medically unfit for further service
Commanding Officer
To be carried out only on the recommendation of an Invaliding Board
III (iv) At his own request before fulfilling the conditions of his enrolment
Commanding Officer
The Commanding officer will exercise the power only when he is satisfied as to the desirability of sanctioning the application and the strength of the unit will not thereby be unduly reduced.
III (v) All other classes of discharge
Brigade/Sub-Area Commander
The Brigade or Sub Area Commander before ordering the discharge shall, if the circumstances of the case permit give to the person whose discharge is contemplated an opportunity to show cause against the contemplated discharge.
Persons enrolled under the Act who have not been arrested
xxx xxx xxx xxx
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8. A plain reading of the above makes it abundantly clear
that the rule does not provide for anything beyond an
opportunity to the individual concerned to show cause
against his contemplated discharge before the competent
authority passes any such order of discharge. That a show
cause notice was issued to the petitioner in the present case
before his discharge is not denied. On a strict interpretation
of Rule 13(III)(V), therefore, one could perhaps say that the
letter of the law has been complied with inasmuch as an
opportunity has been afforded to the appellant to show
cause against the contemplated discharge. The question,
however, is whether that was enough having regard to the
procedure which the Government has stipulated for the
exercise of the power vested in the competent authority
under Rule 13 of the Army Rules (supra). The
Government has, as rightly mentioned by learned counsel
for the appellant, stipulated not only a show cause notice
which is an indispensable part of the requirement of the Rule
but also an impartial enquiry into the allegations against him
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in which he is entitled to an adequate opportunity of putting
up his defence and adducing evidence in support thereof.
More importantly, certain inbuilt safeguards against
discharge from service based on four red ink entries have
also been prescribed. The first and foremost is an
unequivocal declaration that mere award of four red ink
entries to an individual does not make his discharge
mandatory. This implies that four red ink entries is not some
kind of laxman rekha, which if crossed would by itself render
the individual concerned undesirable or unworthy of
retention in the force. Award of four red ink entries simply
pushes the individual concerned into a grey area where he
can be considered for discharge. But just because he
qualifies for such discharge, does not mean that he must
necessarily suffer that fate. It is one thing to qualify for
consideration and an entirely different to be found fit for
discharge. Four red ink entries in that sense takes the
individual closer to discharge but does not push him over. It
is axiomatic that the Commanding Officer is, even after the
award of such entries, required to consider the nature of the
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offence for which such entries have been awarded and other
aspects made relevant by the Government in the procedure
it has prescribed.
9. We may at this stage gainfully extract the relevant
portion of the procedure prescribed for dismissal:
“ Procedure for dismissal/discharge of Undesirable JCOs/WOs/OR:
4. AR 13 and 17 provide that a JCO/WO/OR whose dismissal or discharge is contemplated will be given a show cause notice. As an exception to this, services of such a person may be terminated without giving him a show cause notice provided the competent authority is satisfied that it is not expedient or reasonably practicable to service such a notice. Such cases should be rare, e.g., where the interests of the security of the State so require. Where the service of a show cause notice is dispensed with, the reasons for doing so are required to be recorded. See proviso to AR 17.
5. xxxxxxxxxxxxx
(a) Preliminary Enquiry. Before recommending discharge or dismissal of an individual the authority concerned will ensure:-
(i) that an impartial enquiry (not necessarily a Court of Inquiry) has been made into the allegations against him and that he has had adequate opportunity of putting up his defence or explanation and of adducing evidence in his defence.
(ii) that the allegations have been substantiated and that the extreme step of termination of the individual’s service is warranted on the merits of the case.
(f) Final orders by the competent Authority. The authority competent to sanction the
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dismissal/discharge of the individual will before passing orders reconsider the case in the light of the individual’s reply to the show cause notice. A person who has been served with a show cause notice for proposed dismissal may be ordered to be discharged if it is considered that discharge would meet the requirements of the case. If the competent authority considers that termination of the individual’s service is not warranted but any of the actions referred to in (b) to (d) of Para 2 above would meet the requirements of the case, he may pass orders accordingly. On the other hand, if the competent authority accepts the reply of the individual to the show cause notice as entirely satisfactory, he will pass orders accordingly.
Note:-1. As far as possible, JCO, WO and OR awaiting dismissal orders will not be allowed to mix with other personnel. 2. Discharge from service consequent to four red ink entries is not a mandatory or legal requirement. In such cases, Commanding Officer must consider the nature of offences for which each red ink entry has been awarded and not be harsh with the individuals, especially when they are about to complete the pensionable service. Due consideration should be given to the long service, hard stations and difficult living conditions that the OR has been exposed to during his service, and the discharge should be ordered only when it is absolutely necessary in the interest of service. Such discharge should be approved by the next higher Commander.”
10. A careful reading of the above would show that the
competent authority has made it abundantly clear to officers
competent to direct discharge that before discharging an
individual, not only should there be a show cause notice but
an enquiry into the allegations made against the individual
concerned in which he ought to be given an opportunity of
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putting up his defence and that the allegations must stand
substantiated for a discharge to follow.
11. Para 5(f)(2) (supra) underscores the importance of the
truism that termination of the individual’s service is an
extreme step which ought to be taken only if the facts of the
case so demand. What is evident from the procedural
mandate given to the authorities is to ensure that discharge
is not ordered mechanically and that the process leading to
the discharge of an individual is humanized by the
requirement of an impartial enquiry into the matter and fair
opportunity to the concerned especially when he is about to
complete his pensionable service. Equally significant is the
fact that the authority competent to discharge is required to
take into consideration certain factors made relevant by the
circular to prevent injustice, unfair treatment or arbitrary
exercise of the powers vested in the Authority competent to
discharge. For instance Note 2 to Rule 5 (supra) requires the
competent authority to take into consideration the long
service rendered by the individual, the hard stations he has
been posted to and the difficult living conditions to which the
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individual has been exposed during his tenure. It is only
when the competent authority considers discharge to be
absolutely essential after taking into consideration the
factors aforementioned that discharge of the individual can
be validly ordered.
12. The argument that the procedure prescribed by the
competent authority de hors the provisions of Rule 13 and
the breach of that procedure should not nullify the order of
discharge otherwise validly made has not impressed us. It
is true that Rule 13 does not in specific terms envisage an
enquiry nor does it provide for consideration of factors to
which we have referred above. But it is equally true that
Rule 13 does not in terms make it mandatory for the
competent authority to discharge an individual just because
he has been awarded four red ink entries. The threshold of
four red ink entries as a ground for discharge has no
statutory sanction. Its genesis lies in administrative
instructions issued on the subject. That being so,
administrative instructions could, while prescribing any such
threshold as well, regulate the exercise of the power by the
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competent authority qua an individual who qualifies for
consideration on any such administratively prescribed norm.
Inasmuch as the competent authority has insisted upon an
enquiry to be conducted in which an opportunity is given to
the individual concerned before he is discharged from
service, the instructions cannot be faulted on the ground
that the instructions concede to the individual more than
what is provided for by the rule. The instructions are aimed
at ensuring a non-discriminatory fair and non-arbitrary
application of the statutory rule. It may have been possible
to assail the circular instructions if the same had taken away
something that was granted to the individual by the rule.
That is because administrative instructions cannot make
inroads into statutory rights of an individual. But if an
administrative authority prescribes a certain procedural
safeguard to those affected against arbitrary exercise of
powers, such safeguards or procedural equity and fairness
will not fall foul of the rule or be dubbed ultra vires of the
statute. The procedure prescribed by circular dated 28th
December, 1988 far from violating Rule 13 provides
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safeguards against an unfair and improper use of the power
vested in the authority, especially when even independent of
the procedure stipulated by the competent authority in the
circular aforementioned, the authority exercising the power
of discharge is expected to take into consideration all
relevant factors. That an individual has put in long years of
service giving more often than not the best part of his life to
armed forces, that he has been exposed to hard stations and
difficult living conditions during his tenure and that he may
be completing pensionable service are factors which the
authority competent to discharge would have even
independent of the procedure been required to take into
consideration while exercising the power of discharge.
Inasmuch as the procedure stipulated specifically made
them relevant for the exercise of the power by the
competent authority there was neither any breach nor any
encroachment by executive instructions into the territory
covered by the statute. The procedure presented simply
regulates the exercise of power which would, but for such
regulation and safeguards against arbitrariness, be
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perilously close to being ultra vires in that the authority
competent to discharge shall, but for the safeguards, be
vested with uncanalised and absolute power of discharge
without any guidelines as to the manner in which such
power may be exercised. Any such unregulated and
uncanalised power would in turn offend Article 14 of the
Constitution.
13. Coming then to the case at hand, we find that no
enquiry whatsoever was conducted by the Commanding
Officer at any stage against the appellant as required under
para 5(a) of the procedure extracted above. More
importantly, there is nothing on record to suggest that the
authority competent had taken into consideration the long
service rendered by the appellant, the difficult living
conditions and the hard stations at which he had served.
There is nothing on record to suggest that the nature of the
misconduct leading to the award of red ink entries was so
unacceptable that the competent authority had no option but
to direct his discharge to prevent indiscipline in the force.
We must, in fairness, mention that Mr. Maninder Singh, ASG,
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did not dispute the fact that any number of other personnel
are still in service no matter they have earned four red ink
entries on account of overstaying leave. If that be so, the
only safeguard against arbitrary exercise of power by the
authority would be to ensure that there is an enquiry
howsoever summary and a finding about the defence set-up
by the individual besides consideration of the factors made
relevant under the note to para 5(f) of the procedure. It is
common ground that a red ink entry may be earned by an
individual for overstaying leave for one week or for six
months. In either case the entry is a red ink entry and would
qualify for consideration in the matter of discharge. If two
persons who suffer such entries are treated similarly
notwithstanding the gravity of the offence being different, it
would be unfair and unjust for unequals cannot be treated
as equals. More importantly, a person who has suffered four
such entries on a graver misconduct may escape discharge
which another individual who has earned such entries for
relatively lesser offences may be asked to go home
prematurely. The unfairness in any such situation makes it
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necessary to bring in safeguards to prevent miscarriage of
justice. That is precisely what the procedural safeguards
purport to do in the present case.
14. Reliance upon the decisions of this Court in the cases
referred to earlier is, in our opinion, of no help to the
respondent for the same have not adverted to the procedure
prescribed for the exercise of the power of discharge. In
Union of India v. Corporal A.K. Bakshi & Anr. (supra)
the question before this Court was whether an order of
discharge passed in pursuance of the Policy for Discharge of
Habitual Offenders could be considered a discharge
simplicitor as envisaged in 15(2)(g)(ii) or if it would
tantamount to termination of service by way of punishment
under Rule 18 of the said Rules. The Court came to the
conclusion that it was a discharge simplicitor and as such it
could not be held as termination of service by way of a
punishment for misconduct. This was clearly not a case
where the procedure for discharge was not followed. The
Court had, in that case, unequivocally held that there was no
dispute between the parties that the procedure had been
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duly followed. Similarly, the decision of this Court in Union
of India v. Rajesh Vyas (supra) is also distinguishable. In
that case, the discharge order was challenged on the ground
that it was passed without regard to the response to the
show cause notice filed by the discharge order. Upon a
perusal of the material, this Court held that the case was not
one wherein the discharge order was passed without
application of mind and that there was evidence to show
that power was exercised upon consideration of all relevant
records. The decision of this Court in Union of India and
Ors. v. Dipak Kumar Santra (supra) is also of no
relevance to the case at hand as that case dealt with a
recruit who had failed twice in clerks’ proficiency and
aptitude test and was discharged under Rule 13(3) of the
Army Rules. Without adverting to the procedure prescribed
for such removal, the discharge was maintained by this
Court opining that the discharging authority was empowered
to do so under Rule 13(3) of the Army Rules. Reliance upon
the recent judgment of this Court in Union of India & Ors.
v. Balwant Singh [Civil Appeal No. 5616 of 2015] is also
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misplaced. The grievance of the respondent in that case,
primarily, rested upon the alleged excessive punishment
meted out for the red ink entries suffered by him. The
respondent also claimed to have been discriminated due to
discharge from the Armed Forces. That was also not a case
where discharge order was challenged as bad in law on the
basis of irregularities nor was it a case where the authority
was said to have failed to follow the necessary procedure.
The decision of the High Court of Delhi in Surinder Singh
v. Union of India (2003) 1 SCT 697, to the extent the
same toes a line of reasoning different from the one adopted
by us does not lay down the correct proposition and must,
therefore, be confined to the facts of that case only.
15. In the result this appeal succeeds and is hereby
allowed. The order of discharge passed against the appellant
is hereby set aside. Since the appellant has already crossed
the age of superannuation, interest of justice will be
sufficiently served if we direct that the appellant shall be
treated to have been in service till the time he would have
completed the qualifying service for grant of pension. No
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back wages shall, however, be admissible. Benefit of
continuity of service for all other purpose shall, however, be
granted to the appellant including pension. Monetary
benefits payable to the appellant shall be released
expeditiously but not later than four months from the date
of this order. No costs.
……………………………………….…..…J. (T.S. THAKUR)
……………………………………….…..…J. (V. GOPALA GOWDA)
……………………………………….…..…J. (R. BANUMATHI)
New Delhi October 16, 2015
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