Holding

In the absence of a specific provision in the CRPF Rules to count past Army service, the Executive Instruction dated 5 July 1972 validly provides for such inclusion, making the seniority list prepared under it lawful.

Summary

The petitioners, former Emergency Commissioned Officers (ECOs) in the Central Reserve Police Force (CRPF), challenged the seniority list prepared by the Union of India, alleging that the list improperly accounted for their past Army service. The Court examined whether the 1967 Rules on ECOs applied to seniority matters or whether the Executive Instruction dated 5 July 1972 could validly be used in the absence of a specific rule. Relying on its earlier decision in Ravi Paul v. Union of India, the Court held that the Executive Instruction was permissible because the CRPF Rules were silent on counting past Army service. Consequently, the seniority list prepared in accordance with the Instruction was lawful. The writ petition was dismissed, but the Court directed that a petitioner still in service be allowed to retain his promoted post by creating a supernumerary position. All further promotions must follow this order.

Issues considered

Can the Executive Instruction dated 5 July 1972 be applied to fix seniority of Emergency Commissioned Officers in the CRPF in the absence of a specific provision in the CRPF Rules?
Do the Emergency Commissioned Officers and Short-Service Commissioned Officers (Reservation and Vacancies) Rules, 1967, govern the seniority of ECOs and thus preclude reliance on the Executive Instruction?
Is the seniority list prepared by the respondents, which incorporates past Army service of ECOs, legally valid?
Should a petitioner who remains in a promoted post be allowed to continue in that post by creating a supernumerary post despite dismissal of the writ petition?

Legislation cited

Subjects

seniorityEmergency Commissioned OfficersCRPFExecutive Instructionservice lawpromotionsupernumerary postadministrative law

Judgment

A R.C. SAHi AND ORS. ETC.
v.
UNION OF INDIA AND ORS.

NOVEMBER 10, 1998

B [S. SAGHIR AHMAD AND K. VENKATASWAMI, JJ.]

Central Reserve Police Force Act, 1949 :

Central Reserve Police Force Rules, 1955 : Rules 8 and 105(JV-A)
c Emergency Commissioned Officers and Short-Service Commissioned
Officers (Reservation and Vacancies) Rules, 1967 :

Service law-Army-Fixing of seniority between the petitioners-Direct
recruits and respondents-Emergency Commissioned Officers-Reckoning of
D past services-Appointment of Emergency Commissioned Officers to Central
Reserve Police Force-Held in the absence of a provision to give benefit of
the past service in Army service to the Emergency Commissioned Officers the
Executive Instruction dated 5. 7. 1972 applicable-Held seniority of private
respondents was rightly fixed in C.R.P.F. by taking into account service
rendered by them as Emergency Commissioned Officers.
E
Administrative Law-Applicability of executive instructions in the
absence of a provision.

Constitution of India, 1950 : Articles 32 and 142.

F Supreme Court-Directions for doing complete justice-Revision of
seniority list sought by petitioners--Oround taken that seniority of private
respondents was wrongly fixed by reckoning their service as Emergency
Commissioned Officers-Dismissal of writ petition-But directions given for
doing complete justice-Petitioner who is still in service in the promoted
G post shall continue in the said post, if necessary, by creating a supernumerary
post.

Ravi Paul and Ors. v. Union of India and Ors., [1995) 3 SCC 300,
relied on.
Union of India & Ors. v. N.S. Sekhawat & Ors., (1989) Supp. 1 SCC
H 612
R.C. SAHi v. U.0.1. 613
270, explained. A

CIVIL ORIGINAL JURISDICTION : I.A. No. 4 In Writ Petition (C)
No. 1177 of 1989 with Writ Petition (C) No. 211 of 1997.

(Under Article 32 of the Constitution of India.)
B
Rajeev Dhawan, Raj Kumar Gupta, H. V.P. Sharma and A.N. Bardiyar for
the Petitioners.

K.N. Rawal, Additional Solicitor General, N.N. Goswamy, Y.P. Mahajan C
and P. Parameswaran for the Union of India.

M.L. Verma, Ashok K. Mahajan and K.K. Gupta for the Respondents.

The following Order of the Court was delivered :
D
Writ Petition (C) No.211/97 under Article 32 of the Constitution of India
has been filed with a prayer to issue a writ of mandamus to the respondents
I and 2 to implement the judgment of this Court dated January 19, 1995 in
Ravi Paul and Ors. v. Union of India and Ors., [1995] 3 SCC 300 and also
the Order dated July 18, 1995 of this Court in R.C. Sahi & Ors. etc. v. Union E
of India & Ors., and for other consequential reliefs as well.

It is the case of the petitioners that this Court in R.C. Sahi's case had
expressly directed the first respondent to revise the seniority list, if necessary,
after hearing the officers concerned, in accordance with law. The first p
respondent, according to the petitioners, purporting to implement the order
of this Court in Sahi' s case, had prepared a seniority list ignoring the relevant
provisions of law which had affected their seniority. It is to be noted, the
petitioners were also parties in Sahi's case.

Though the issue lies in a narrow compass, wide ranging arguments G
were addressed by the learned counsel in this case.

The short question that arises for consideration is whether Respondents
I and 2 are justified in taking into account the past services of the private
~ respondents in the Army for the purpose of fixing seniority between,. the H
614 SUPREME COURT REPORTS (1998] SUPP. 2 S.C.R.
A petitioners direct recruits and the respondents-Emergency Commissioned
Officers (for short 'ECOs').

At this stage, a brief recount of the facts relating to the issue is
necessary. The Central Reserve Police Force (for short 'CRPF'), with which
we are nt:N concerned, came into existence under the Central Reserve Police
B Force Act, 1949. The CRPF Rules were framed in the year 1955 to deal with
various matters. Rule 105 related to appointment and promotion of superior
officers. By Notification No. F/2/4/67.P-II dated May 11, 1967 issued by
Ministry of Home Affairs, an amendment to Rule 105 was introduced by
adding Clause (IV-A) to Rule 105. By the said amendment, appointment of
C Emergency Commissioned Officers (ECOs) and Short-Service Commissioned
Officers of the Armed Forces of the Union was introduced as one of the
modes of recruitment. Since then, dispute between the direct-recruits and the
ECOs started in the matter of seniority and the consequential promotions.

Initially, respondents 1 and 2 did not admit that the ECOs would come
D under the category of Army Officers. Later on, it was conceded that they
would come under the category of Army Officers.

When the past service in the Army by the ECOs was ignored in the
matter of seniority and promotion, they moved the Delhi High Court for
necessary directions to the respondents 1 and 2 to include their past Army
E service for the purpose of seniority and consequential promotion. The Delhi
High Court by its decision dated September 2, 1985 in C. W. No. 44/85 accepted
the claim of the ECOs. Inter alia, the issue relating to the application of
Emergency c.ommissioned Officers and Short-Service Commissioned Officers
(Reservation and Vacancies) Rules, l 967(for short '1967 Rules') was also
F considered by the Delhi High Court. The learned Judges categorically held
as follows:-

"However, we think that these reservation Rules have no application
to the case of petitioners (ECOs). The reason for this is that the
petitioners have been treated as a separate source of recruitment for
G the Central Reserve Police Force, 1955 after their amendment. No
question of reservation as such is involved in the recruitment of the
petitioners. Once they are recruited, the next question is the seniority
and pay they have to enjoy in the service after recruitment."

The above judgment of the Delhi High Court was challenged before this
H Court in S.L.P. (C) Nos. 1390/85 and 16911/85. This Court by a reasoned order
R.C. SAHi v. U.0.1. 615

dated January 21, 1986 dismissed the S.L.Ps upholding the judgment of the A
Delhi High Court. No doubt, a three Judge Bench of this Court in Ravi Paul's
case and observed that the judgment of the Delhi High Court, as affirmed by
this Court, had not laid down the correct law insofar as it held that Rule 8
of 1955 CRPF Rule enabled the ECO!J to add their past Army services for the
purposes of seniority in the CRPF. Only to that extent it can be taken that B
the judgment of the Delhi High Court, as affirmed by this Court, was not
accepted. However, this Court in Ravi Paul's case held that the Executive
Instructions issued on 5.7.72 enabled the ECOs to add their past Army service
in the Service of CRPF.

As a result of the judgment dated 2.9 .85 of the Delhi High Court in C. W. C
No. 44/85, U.B.S. Teotia & Ors. v. U.0.1. & Ors., as confirmed by this Court
on 21.1.86 as many as 37 direct-recruits, who were holding the posts of
Commandant, were reverted. Aggrieved by that, the direct-recruits moved the
High Court for recalling the earlier judgment in C.W. No. 44/85 (Teotia's case),
inasmuch as those direct recruits were not parties and the ratio laid down in
the judgment giving benefit of past Army service, prejudicially affected their D
interests. The Delhi High Court dismissed the petition of the direct-recruits.
Thereafter, the Union of India and the direct-recruits moved this Court. In
Civil Appeal Nos. 1909-1911/89, vide U.0.1 & Ors. v. N.S. Sekhawat & Ors.,
this Court considered the grievances of the direct-recruits. Even at that time,
this Court had observed that the dispute between the direct-recruits and the E
ECOs over the question of seniority and been going on for a long time and
also noticed that the parties desired to settle the dispute amicably and for that
purpose granted adjournments. After appreciating the terms of settlement
given separately by the Union of India, direct-recruits and the ECOs, this
Court by its Order dated 14.3.89 protected the interests of direct-recruits by
directing the Union Government to create 3 7 supernumerary posts. It must be F
noted that the right of adding past Army service of the ECOs was not
disturbed.

In the light of the judgment of this Court in Civil Appeal Nos. 1909-
1911/89, the Union ofindia carried out the directions given therein.
G
Another set of direct-recruits of different year moved this Court by
filing W.P. (C) No. 1177/89 under Article 32 of the Constitution of India stating
that they were not parties to the earlier decision of this Court and, therefore,
the decision of this Court in C.W. No. 1909-1911/89 prejudicially affected their
interests. This Court again considered the issue and by decision dated July
18, 1995 directed the Union of India to create necessary supernumerary posts H
616 SUPREME COURT REPORTS [1998) SUPP. 2 S.C.R.

A to safeguard the interests of direct-recruits. It is again to be noted that the
question of adding past Anny service in the case of ECOs was not raised and
that matter was taken as concluded. While disposing of the writ petition, this
Court observed as follows:-

"We make it clear that any further promotion from amongst the two
B categories shall be made in accordance with law. If it is necessary to
revise the seniority list, the Govt. of India shall do the same after
hearing the officers concerned and in accordance with law."

It is under these circumstances, the seniority list was revised by the
Respondents 1 and 2. Aggrieved by that again, the direct-recruits have
C moved this Court by filing Writ Petition (C) No. 211197 besides I.A. No.4 in
Writ Petition (C) No. 1177/89 for the relief already noticed.

The arguments of Dr. Rajeev Dhawan, learned senior counsel for the
petitioners, is that the Rules framed under Article 309 of the Constitution of
India in the year 1967 do apply to the facts of the case and the seniority as
D well as promotion to the respondents must be made with reference to those
Rules. The finalisation of impugned seniority list, according to the learned
senior counsel, by referring to Executive Instructions issued on 5.7.72 is
contrary to well-settled principles that the Executive Instructions cannot
supersede the Rules framed under Article 309 of the Constitution of India.
E
Though Dr. Rajeev Dhawan, learned senior counsel initially resisted the
contention advanced· on behalf of the respondents that 1967 Rules will have
no application to the facts of the case, ultimately he has to give up that
argument and in our view rightly, in view of the fact that those Rules were
intended to be applied in Central Civil Services. We have earlier noticed the
F observations of the Delhi High Court on this very issue and the conclusion
reached by it. We are in agreement with those observations.

The result is that the only issue to be decided is whether the application
of Executive Instructions issued on 5. 7. 72 for fixing the seniority between the
direct recruits and ECOs is pennissible or not.
G
In Ravi Paul's case, the Executive Instructions of 5.7.72 came up for
consideration, while considering a case under Border Security Force Rules
1969. This Court in that case observed as follows:

"22. It would thus appear that Rule S(b )(i) of the CRPF Rules only
H governs the seniority as between Anny Officers inter se, Anny Officers
R.C. SAHi v. U.0.1. 617
and re-employed Army Officers inter se, Indian Police Service Officers A
inter se, and non-Army and Army Officers of equivalent rank inter se.
The expression 'rank' in this rule means the rank in CRPF. There is
nothing in Rule 8(b) to indicate that the earlier Army service of an
Army Officer or a re-employed Army Officer is to be counted for the
purpose of seniority in CRPF. Since Rule 8(b) (i) is silent in this regard B
executive instructions can be issued by the Central Government for
the purpose of giving benefit of Army service to Army Officers or re-
employed Army Officers. With that end in view the Government of
India, in its letter dated 5. 7 .1972 addressed to the Director General BSF
and CRPF as well as JG (ITBP) and Secretary (Home), Arunachal
Pradesh Administration, has laid down certain principles for the C
purpose of fixation of seniority of ex-ECOs appointed in the BSF,
CRPF, ITBP and Assam Rifles. The said principles were, however,
applicable only to ex-ECOs who were absorbed/appointed in these
forces during the period 1967 to 1970."
(Emphasis supplied)
D
In view of the above observations, it is clear that in the absence of a
provision to give benefit of the past service in Army service to the ECOs in
the main rule, the Executive Instructions are permissible and the Executive
Instructions dated 5.7.72 were issued to achieve that object. Dr. Rajeev Dhawan,
learned counsel, could not seriously contend that if the Executive Instructions E
of 5.7.72 are to be applied and the past Army service of the ECOs is added,
the private respondents will be senior to the petitioners. It is the specific case
of the respondents 1 and 2 that the impugned seniority list was prepared on
the basis of the Executive instructions dated 5.7.72. Therefore, there is no

- room for doubt that the seniority list now prepared by the respondents 1 and
2 is quite in accordance with law and in compliance with the directions of this
Court in Sahi's case.
F

Before concluding, we may also point out that the petitioners before
filing writ Petition (C) No. 211/97 sought for a review of the judgment in R.C.
Sahi's case but withdrew the same. Similarly, they filed a petition for contempt
on the ground that this Court's order was not implemented and subsequently G
withdrew the same. They hav~ also filed I.A. No. 4 for clarification besides
filing this Writ Petition for implementation of the order of this Court in Sahi's
case.

As noticed earlier, the petitioners could not establish that 1967 Rules
are applicable to the private respondents and that Executive Instructions H
618 SUPREME COURT REPORTS [1998) SUPP. 2 S.C.R.

A dated 5.7.1972 will not apply to the respondents. We do not think that the
petitioners have made out any case for making the rule absolute nor for any
clarif:cation of the Order of this Court in Sahi's case.

Before parting with this case in order to do complete justice and having
regard to precedents in the earlier connected disposed of matters, we make
B the following directions.

There are two petitioners in W.P. (C) No. 211/97. Out of these two, it
is stated that one has already retired from the service. In the light of the
interim orders dated 19.1.98 and 27.1.98, the first petitioner (C.M. Bahuguna)
is still in service in the promoted post. In the circumstances, we are of the
C view that, notwithstanding the dismissal of the Writ Petition, the petitioner,
viz. C.M. Bahuguna, who is still in service in the promoted post, should be
allowed to continue in the said promoted post, if necessary, by creating a
supernumerary post. However, we make it clear that all further promotions
shall be made in the light of this Order.
D
The Writ Petition (C) No.2 ! 1/97 fails and is accordingly dismissed. I.A.
No.4 will also stand dismissed. There will be no order as to costs.

T.N.A. Petitions dismissed.

;