S.K. MUKHERJEEversusUNION OF INDIA AND ANOTHER

                            S.K. MUKHERJEE                                       A
                                      v.
                  UNION OF INDIA AND ANOTHER

                             AUGUST 3, 1994

              [A.M. AHMADI AND S.P. BHARUCHA, JJ.]                               B

      Service Law :

        Civil Defence Act 1968/Civil Defence Regulations, 1968 Sections 4, 5,
6, 7, 8, 9, 20/Regulations 8, 13, !~Service Conditions of Civil Defence Corps    C
employees-Framing of Regulations by Central Govemment alone-But the
Act could be hrought into force by different states on different dates-Service
conditions can be stipulated by State Govemment.

      The petitioner was appointment as Staff Officer-cum· Instructor in
the Directorate of Civil Defence, West Bengal on a temporary basis. He           D-
claimed to be a member of the Civil Defence Corps and that he was
governed by the Civil Defence Act, 1968. The Civil Defence Organisation
was set up in India in 1965 under the Defence of India Act and was later
converted into Civil Defence Corps under the Civil Defence Act, 1968.
Accordingly, the Civil Defence Organisation of West Bengal was converted         E
into a Civil Defence Corps by Notification dated 10.7.1968 and thereupon
the petitioner became a member of the said corps. According to the
petitioner, the Central Government in compliance with High Court's or·
ders took over complete control of the Mobile Civil Emergency Force
(MCEF) with effect from 1.4.92 by order dated 26.2.92 whereby existing
employees of MCEF, Calcutta became holders of Civil posts under the              F
Government of India and derived all the benefits admissible to such
employees. Since the petitioner and others did not receive the same benefit
as they were not covered under the said order, the petitioner preferred the
present Writ Petition.

       It was contended that since the Civil Defence Act, 1968 is a Central G
Act and extends to the whole of India including West Bengal, the Central
Government should have regulated the recruitment and conditions of
service of persons appointed in the Civil Defence Organisation all over the
country to have uniform set of service conditions, the absence of which is
violative of Articles 14, 16 and 21 of the Constitution.                    H
                                     395
    ~96                  SUPREME COURT REPORTS (1994) SUPP. 2 S.C.R.

A          On behalf of the respondents it was contended that the petitioner
    has been a full time employee and is governed by the State service condi·
    tions, and he cannot claim to be governed by rules and regulations made
    by the Central Government.

          Dismissing the Writ Petition, this Court
B
          HELD : 1. Rules and regulations can be framed by the Central
    Government alone under the provisions of the Civil Defence Act, 1968.
    Such regulations under Section 9(2)(b) can interalia relate to conditions
    of service. But there is no dispute that the Act could be brought into force
C   by different States from different dates, so however, that such date shall
    not be earlier to the date on which the Defence of India Act, 1962 would
    expire. Admittedly the Act was brought into effect from 10th July, 1968.
    However, the Order No. 4729-HCD dated 24th July, 1965 appointing the
    petitioner to the temporary post of Staff Officer-cum-Instructor in the
    Directorate of Civil Defence, West Bengal, being earlier to 10th July, 1968,
D   there can be no doubt that the petitioner's appointment was de hors the
    Act. [402:B, CJ

          2: Regulation 8 of the Civil Defence Regulations, 1968, bear on the
   service conditions of.the members of the Civil Defence Corps. On a plain
   reading of this regulation it becomes immediately obvious that members
E of the Corps are expected to render service in a voluntary and honoura.,-
   capacity but if the State Government so desires it may authorise payment
   of dutY allowance in consultation with the Central Government t~ a
   member of the Corps called on duty. Clause (2) which begins with a non·
   obstante clause empowers the Central Government to declare any appoint·
F ment or class of appointments as paid appointments whereupon the
   incumbent shall be entitled to the conditions of service as regards pay,
   leave, etc., as the State Government may by order, prescribe. Here again
   the power of prescribing the service conditions as to pay, leave, etc. rests
   with the State Government and not the Central Government. Therefore,
G the petitioner's claim that the Service conditions as to pay, leave, etc.,
   cannot be stipulated by the State Government is clearly misconceived. That
   function has clearly been entrusted to the State Government on a plain
  .reading of Regulation 8. (402-G·H, 403-A to CJ

          3_. The Central Government's action in complying with Court's or-
H ders in relation to MCEF can never offer a ground for contending that
                    MUKHERJEE v. U.0.1. [AHMADI, J.]                     397

there bas been discrimination and a violation of the equality clanse in         A
Article 14 of the Constitution. [403-E)

        CIVIL ORIGINAL JURISDICTION : Writ Petition (C) No. 457 of
1993.

        (Under Article 32 of the Constitution of India.)                        B

        In-person for the Petitioner.

        R.P. Srivastava for Mr. P. Parmeswaran for the Respondent in No.
1.
                                                                                c
        Avijit Bbattacbarjee for the Respondent in No. 2.

        The Judgment of the Court was delivered by

      AHMADI, J. The Director of Civil Defence, West Bengal, by Order
No. 4729-HCD dated 24th July, 1965 appointed the petitioner on a tern-          D
porary basis on the post of Staff Officer-cum-Instructor in the Directorate
of Civil Defence, West Bengal in the scale of Rs. 175-325 plus usual
allowances. The petitioner claims to be a member of the Civil Defence
Corps. On this premise be contends that bis case is governed by the Civil
Defence Act, 1968 (Act No. 27 of 1968), hereinafter called 'the act'. The       E
said Act was broght into force with effect from 10th July, 1968. It may be
advantageous to notice the relevant provisions of the said Act at this stage.

      The Act was enacted to make provision for civil defence and for
matters connected therewith.It extends to the whole of.India. The expres-
sion 'Civil Defence Corps' has been defined to mean the corps formed            F
wholly or mainly to meet the needs of civil defnce, including an organisa-
tion deemed to be a corps under section 4(1). That sub-section provides
for the constitntion of a Civil Defence Corps. It reads as under :

          "4(1) The State Government may constitute, for any area within        G
          the State, a body of persons to be called the Civil Defence Corps
          (hereinafter referred to as the "Corps") and may appoint a person,
          not being, in its opinion, below the rank of a District Magistrate
          (to be known as the "Controller") to command such Corps :

          Provided that if there is an existence in. any area in     a state,   H
    398                  SUPREME COURT REPORTS [1994] SUPP. 2 S.C.R.

A           immediately before the commencement of this Act in that area, an
            organisation which, in the opinion of the State Government, may
            be entrusted with the functions of the Corps, the State Government
            may, instead of constituting a separate Corps for such area, call
            upon that organisation to take over or discharge the functions of
            the Corps in that area, and thereupon such organisation shall be
B           deemed, for the· purposes of this Act, to be the Corps for the area.

            (2) The State government may, for the purpose of co- ordinating
            the activities of the Controllers within the State, appoint a Director
            of Civil Defence and every Controller shall comply with the direc-
c           tions given by such Director."

    Section 5 empowers the State Government to appoint members and of-
    ficers of the Corps. Sub-section {2) of Section 5 provides that every person
    appointed to be a member of the Corps shall be given a certificate of
    membership. Section 6 provides for the dismissal of a member of Civil
D   Defence Corps while Section 7 provides for an appeal to the State Govern-
    ment against an order made under section 6. Section 8 enumerates the
    functions of members of the Corps while section 9 empowers the Central
    Government to make regulations. As the petitioner has sought directions
    in regard to the making of regulations we may reproduce the section for
E   ready reference. It reads thus:

            "9(1) The Central Government may, by notification make regula-
            tions for carrying out the purposes of this Chapter.

            {2) In particular, and without prejudice to the generality of the
F           foregoing power, such regulations may -

            (a) prescribe the functions of the members of the Corps and
                regulate the manner in which they may be called out for
                service;
G           {b) regulate the organisation, appointment, conditions of service,
                 discipline, accountrement and clothing of members of any or
                 all of the Corps;

            (c) prescribed the form of certificates of membership of any or
H               all of the Corps."
                   MUKHERJEE v. U.0.1. [AHMADI, J.)                       399

Lastly section 20 provides that every rule made under section 3 and every A
regulation made under section 9 by the Central Government shall be laid
before each House of Parliament while in sesion for thirty days. Admittedly
the Central Government has made rules in exercise of power conferred by
section 3 called the Civil Defence Rules, 1968. So also in exercise of power
under section 9 the Central Government made regulations called the Civil B
Defence Regulations, 1968. Regulation 4 lays down the manner of applying
for appointment to the Corps and regulation 7 prescribes the form of
certificate to be given on appointment. Regulation 8 sets out the conditions
of service as under:

        "8. Conditions of Service.-(1) The members of the Corps shall            C
        ordinarily serve in a voluntary and honorary capacity.

        Provided that the State Government may, by order, authorise
        payment of duty allowance (at such scales as may be prescribed
        by it from time to time in consultation with the Central Govern-
        ment) to a member of the Corps when called on duty.                      D
        (2) Notwithstanding anything contained in clause (1), the Central
        Government may declare any appoinment or class of appointments
        as paid appointments. A person appointed on the basis of payment
        shall be entitled to such conditions of service as regards pay, leave    E
        and oihcr benefits as the State Government may, by order,
        prescribe."

Regulation 13 provides for maintenance of service records whereas regula-
tion 14 provides for resignation from the Corps. These, in brief, are the
relevant legal provisions. It will thus be seen that the rules and regulations   F
can be made by the Central Government only.

      We may now briefly state the petitioner's case. The Civil Defence
Organisation was set up in India in 1965 under the Defence of India Act
and was later converted into a Civil Defence Corps under the Civil Defence G
Act, 1968. Accordingly the Civil Defence Organisation of West Bengal was
converted into a Civil Defence Corps by Notification dated 10th July, 1968
and thereupon the petitioner became a member of the said Corps. He also ·
claims to be the Secretary General of the Civil Defence Officers' Guild,
India, a society registered under the West Bengal Societies Registration
Act, 1961. The petitioner points out that the Central Government in H
    400                   SUPREME COURT REPORTS (1994] SUPP. 2 S.C.R.


A   compliance with the Calcutta High Court's Order in Civil Rule No. 6221
    (W) of 1983 took over complete control of the Mobile Civil Emergency
    Force (MCEF) with effect from 1st April, 1992 under office order dated
    26th February, 1992 whereby existing employees of MCEF, Calcutta be-
    came holders of civil posts under the Government of India and derived all
    the benefits admissible to such employees. Since the petitioner and others
B   did not receive the same benefit as they were not covered under the said
    order there was hostile discrimination between two groups of the same
    organisation in total violation of the equality clause in Article 14 of the
    Constitution. According to the petitioner since the Civil Defence Act, 1968,
    is a Central Act and extends to the whole of India including West Bengal,
c   it is incumbent on the Central Government to regulate the recruitment and
    conditions of service of persons appointed in the Civil Defence Organisa-
    tion all over the country by making appropriate provisions in the rules or
    regulations so that every employee is governed by a uniform set of service
    conditions. Since the State Governments are laying down service conditions
D   de hors the rules and regulations under the Act there is total lack of
    uniformity which has resulted in the petitioner being discriminated in
    matters of pay, promotion, transfer, etc. Being aware that it has no power
    to frame regulations, the State of West Bengal resorted to obtaining
    undertakings from employees who desired to avail of the benefit of its
    regulations and those who were not prepared to furnish such undertakings
E   were denied the benefits which introduced two sets of service conditions
    for employees working in the same organisation. It is said that members of
    the Guild like the petitioner are being victimis_ed for their refusal to sign
    the undertaking. Thus the situation is that employees governed by State
    regulations on the strength of undertakings stand on a different footing
F   from those who have refused to give such undertakings and both these
    classes taken together stand on a different footing from MCEF employees
    within the organisation governed by Central Government regulations. This,
    contends the petitioner, is clearly violative of Articles 14, 16 and 21 of the
    Constitution. The petitioner, therefore, seeks in the main the following two
    reliefs :
G
             "(A) Issue an appropriate writ upon the respondent No.1 to frame
             service rules governing service condition of members of Civil
             Defence Corps under the Civil Defence Act and take over ad-
             ministrative, financial and operational control of Civil Defence
H            from State Goverment.



                                                                                     ..
                   MUKHERJEE v. U.0.1. [AHMADI, J.]                       401

         (B) Issue of an appropriate writ prohibiting the respondents from A
         subjecting the petitioner and members of the Guild to any rules
         and regulations outside the provisions of Section 9(2)(b) of Civil
         Defence Act.'

       In the counter affidavit filed on behalf of the Union of India it is
                                                                                 B
averred that under the Regulations made under section 9(2)(b), a member
of the Civil Defence Corps has to apply in Form A and B for enrolment
and on being enrolled he would receive a certificate in Form C and a
service record would be maintained in Form D. The petitioner should have
produced some such documetary evidence to prove his say that he was a
member of the Corps. On the contrary the petitioner is a full time paid          C
employee of the State Government appointed under Notification dated
28th February, 1973. Thus he is an employee of the State Government
governed by the State service conditions. Therefore, the petitioner cannot
claim to be governed by rules and regulations made by the Central Govern-
ment. While conceding that the State Government cannot make rules and            D
regulations under the Act, it is alleged that he would be governed by
executive directions of the State Government issued in. this behalf. There-
fore, he cannot secure the reliefs sought.

       The State of West Bengal also denies the petitioner's claim that he       E
is a memeber of the Civil Defence Corps. On the contrary it contends that
the petitioner is in State service covered by the rules of the State Govern-
ment. He cannot, therefore, invoke section 20 of the Act. It is lastly said
that the petitioner can base no·case on the administrative set up of MCEF
nor can he complain of discrimination on that basis. The petitioner's
petition is, therefore, liable to be dismissed.
                                                                                 F

      In his rejoinder to the aforesaid counters the petitioners has
reiterated his stand and contended that the factum of his suspension on
the allegation that he made baseless allegations in his letter of 7th May,
1991 in his capacity as the office bearer of the. Guild and the failure of the   G
Government to enquire into the matter has been deliberately suppressed.
It is also not stated that in the Writ Petition filed by the petitioner
questioning the suspension, the State Government had made a statement
that the action was in exercise of the employer's general power to refuse
to take work and had, therefore, agreed to pay full wages during suspen-         H
    402                   SUPREME COURT REPORTS [1994] SUPP. 2 S.C.R.

A   sion. Therefore, contends the petitioner, it is evident from the counters that
    the only point surviving for adjudication is whether he is entitled to the
    benefits under the Act as a full time salaried officer.

          From the abridged facts it is evident that rules and regulations can
B be framed by the Central Government alone under the provisions of the
  Act. Such regulations under Section 9(2)(b) can inter alia relate to condi-
  tions of service. But there is no dispute that the Act could be brought into
  force by different States from different dates, so however, that such date
  shall not be earlier to the date on which the Defence of India Act, 1962
  would expire. Even according to the petitioner the Act was brought into
C effect from 10th July, 1968. However, the Order No. 4729-HCD dated 24th
  July, 1965 appointing the petitioner to the temporary post of Staff Officer-
  cum-Instructor in the Directorate of Civil Defence, West Bengal, being
  earlier to 10th July, 1968, there can be no doubt that the petitioner's
  appointment was do hors the Act. Section 4( 1) provides for the constitution
D of the Civil Defence Corps by the concerned State but the proviso to that
  sub-section says that if in any State there is in existence an organisation
  which can be entrusted the functions of the Corps, the State Government
  may instead of constituting a separate Corps, call upon the said organisa-
  tion to take over and discharge the functions of the Corps whereupon such
  organisation shall be deemed to be the Corps for the area. Section 4(2)
E empowers the State Government to appoint a Director of Civil Defence to
  w-ordinate the activities of the Controllers within the State. Under Section
  5(1) it is the State Government which is empowered to appoint memebrs
  of the Corps. Thus the constitution of the Civil Defence Corps, the ap-
  pointment of the Controller and the appointments of members/officers of
F the Corps is with the State Government. Section 17 provides for the
  delegation of the powers of the State Government/Controller to an officer
  of the State Government of the rank specified in the said provision. Even
  so, it is indeed true that the Rules and Regulations have to be made by the
  Central Government in view of the clear language of sections 3 and 9 of
G the Act. The regulations may inter a/ia regulate the conditions of service
  of members of any or all the Corps. Regulation 8 of the Civil Defence
  Regulations, 1968, extracted.£rlier, bear on the service conditions of the
  members of the corps. On a plain reading of this regulation it becomes
  immediately obvious that me bers of the Corps are expected to render
  service in a voluntary and ho orary capacity but if the State Government
H so desires it may authorise p ent of duty allowance in consultation with
                     MUKHERJEE v. U.0.1. [AHMADI, J.]                       403

   the Central Government to a member of the Corps called on duty. Clause          A
   (2) which begins with a non-obstante clause empowers the Central Govern-
  ment to declare any appointment or class of appointments a5 paid appoint-
  ments whereupon the incumbent shall be entitled to the conditions of
  service as regards pay, leave, etc., as the State Government may by order,
  prescribe. Here again the power of prescribing the service conditions as to
                                                                                   B
  pay, leave, etc., rests with the State Government and not the Central
  Government. Therefore, the petitioner's contention that the service condi-
  tions as to pay, leave, etc., cannot be stipulated by the State Government
  is clearly misconceived. That function has clearly been entrusted to the
  State Government on a plain reading of regulation 8 extracted hereinabove.
  If that be so, and we think it is so, no writ can issue (assuming there is       c
  jurisdiction to issue such a writ) to the Central Government as prayed in
. prayer (A) nor can a prohibitory order of the type prayed in prayer (B)
  issue to the.State of West Bengal. We are afraid the petitioner has been
  labouring under a misconception that it is only the Central Government
  and not the State Government which can prescribe the salary, allowances,         D
  leave, etc., in view of section 9(2), but in so thinking he has totally
  overlooked regulation 8. We say so becuase in his petition, affidavits as well
  as written submissions, no emphasis is laid on regulation 8. The central
  Government's action in complying with court's orders in relation to MCEF
  can never offer a ground for contending that there has been discrimination
  and a violation of the equality clause in Article 14 of the Constitution.        E

       For the above reasons we are convinced that the present petition is
 wholly misconceived and the petitioner cannot be granted either or both
 of the reliefs claimed by him. His petition, therefore, fails and is dismissed.
 Having regard to the fact that the petitioner is in dire circumstances since
 he is under suspension, we order parties to bear their own costs. Rule
                                                                                   F
 discharged. No order on I.A.

 G.N .                                                      Petition dismissed.




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