Supreme Court of India
UNION OF INDIA AND OTHERSversusMAJOR S.P. SHARMA AND OTHERS
- Citation
- 2014 INSC 172
- Decided
- 6 March 2014
- Disposal
- Appeal(s) allowed
- Bench
- B S CHAUHAN
Holding
Termination orders under Section 18 of the Army Act, exercised under the constitutional doctrine of pleasure, are valid and not malafide, and the High Court's finding of illegality is set aside.
Summary
The case concerns the termination of several Indian Army officers in 1980 under Section 18 of the Army Act, invoking the constitutional doctrine of pleasure under Article 310. The officers challenged the termination as illegal, arbitrary, and violative of Articles 14, 16, 19 and 21, alleging lack of material evidence and malafide intent. The Supreme Court examined whether the pleasure doctrine is subject to judicial review, the applicability of Article 311 to armed forces personnel, and the effect of res judicata and the doctrine of merger on fresh litigation. It held that while termination orders under the pleasure doctrine are reviewable on grounds of malafide, the material on record showed a legitimate security rationale and no illegality or bias. Consequently, the Court set aside the Delhi High Court's judgment that had quashed the termination orders. The appeal by the Union of India was allowed and the termination orders were upheld.
Issues considered
- The order of termination under Section 18 of the Army Act invoking the doctrine of pleasure is subject to judicial review and may be challenged on grounds of malafide, arbitrariness, or violation of fundamental rights.
- Whether Article 311 of the Constitution applies to armed forces personnel and thus requires a hearing before termination.
- Whether any statutory provision, including the Army Act, can curtail the constitutional power conferred by Article 310.
- Whether the termination orders were passed without material evidence, rendering them illegal or a camouflage.
- Whether the doctrine of res judicata or merger bars the fresh challenges to the termination orders and related benefits.
- Whether the termination orders violate Articles 14, 16, 19 and 21 of the Constitution.
Legislation cited
- Army Act, 1950s. 18, s. 19
Subjects
doctrine of pleasurejudicial reviewArticle 310Article 311Army Actres judicatafinality of judgmentfundamental rightssecurity of the statetermination of servicearmed forces personnel
Judgment
[2014] 4 S.C.R. 327
UNION OF INDIA AND OTHERS A
v.
MAJOR S.P. SHARMA AND OTHERS
(Civil Appeal Nos.2951-2957 of 2001)
MARCH 6, 2014
B
[DR. B.S. CHAUHAN, J. CHELAMESWAR AND
M.Y. EQBAL, JJ.]
Administrative law:
c
Doctrine of pleasure - Judicial review - Scope of -
Termination of Armed Forces Personnel - Held: The order
of termination passed against the Army personnel in exercise
of pleasure doctrine is subject to judicial review - But while
exercising judicial review, the Supreme Court cannot D
substitute its own conclusion on the ba~is of material on
record - When the President in exercise of its constitutional
power terminates the services of the Army officers, whose
tenure of services are at the pleasure of the President and
such termination is based on materials on record, then the
Court in exercise of powers of judicial review should be slow E
in interfering with such pleasure of President exercising
constitutional power - Analysis of entire facts of the case and
the material produced in Court and an exhaustive
consideration of the matter showed that the power of pleasure
exercised by the President in terminating the services of the F
respondents did not suffer from any illegality, bias or ma/afide
or based on any other extraneous ground, and the same
cannot be challenged on the ground that it was a· camouflage
- The onus lay on the respondent-officers who alleged
malafides - There was no credible evidence to hold that the G
order of termination was baseless or malafide - Constitution
of India, 1950 - Doctrine of pleasure.
Constitution of India, 1950:
327 H
328 SUPREME COURT REPORTS [2014] 4 S.C.R.
A Art. 311 - Applicability to Armed Forces Personnel -
Held: Not applicable - Therefore, no enquiry as to whether
the order was by way of punishment sine qua non for
applicability of Art.311, was warranted.
Art.310(1)- Scope of- Held: No provision in any statute
8 can curtail the provision of Art.310.
Army Act, 1959:
ss.18 and 19 - Held: Army Act cannot in any way
c override or stand higher than constitutional provisions
contained in Art.309 and consequently no provision of Army
Act could cut down the pleasure doctrine as enshrined in
Art.310 - Constitution of India, 1950 - Arts.309, 310 -
Doctrine of pleasure.
D s. 18 - Where continuance of Army officers in service is
not practicable for security purposes and there is loss of
confidence and potential risk to the security issue then such
offic~rs can be removed under pleasure doctrine - s. 18 is in
consonance with constitutional power conferred on President
E ~mpowering the President to terminate his services brought
to his notices - In such cases, the Army officers are not
entitled to claim an opportunity of hearing - Constitution of
India, 1950-Arts.309, 310- Doctrine of pleasure - Doctrine
of natural justice.
F Res judicata:
Reopening of issues through fresh round of litigation on
discovery of a fact - Held: The discovery of a reinvestigated
fact could be a ground of review in the same proceedings,
G but the same cannot be made ba$iS for re-opening the issue
through a fresh round of litigation - A fresh writ petition or
Letters Pat~nt Appeal which is in continuation of a writ petition
cannot be filed co/laterally to set aside the judgment of the
same High Court rendered in earlier round of litigation
H upholding the termination order - The principle of finality of
UNION OF INDIA v. MAJOR S.P. SHARMA 329
litigation is based on a sound firm principle of public policy - A
It is not permissible for the parties to reopen the concluded
judgments of the court as it would not only tantamount to
merely .an abuse of the process of the court but would have
far reaching adverse affect on the administration of justice -
It would also nullify the doctrine of stare decisis which cannot B
be departed from unless there are compelling circumstances
· to do so - The judgments of the court and particularly the
Apex Court of a country cannot and should not be unsettled
lightly - Doctrines of public policy - Doctrine of stare decisis.
Precedent: c
Binding effect of - Held: Law declared by Supreme Court,
being the law of the land, is binding on all courts/tribunals and
authorities in India in view of Art. 141 of the Constitution - The
doctrine of stare decisis promotes a certainty and consistency D
in judicial decisions and promotes confidence of the people
in the system of the judicial administration - Judicial propriety
and decorum demand that the law laid down by the highest
Court of the land must be given effect to - Violation of
Fundamental Rights guaranteed under the Constitution have E
to be protected, but at the same time, it is the duty of the court
to ensure that the decisions rendered by the court are not
overturned frequently, that too, when challenged collaterally
as that was directly affecting the basic structure of the
Constitution incorporating the power of judicial review of this F
Court - An issue of law can be overruled later on, but a
question of fact or, as in the instant case, the dispute with
regard to the termination of services cannot be reopened once
it has been finally sealed in proceedings inter-se between the
parties up to the Supreme Court way back in 1980 - G
Constitution of India, 1950 - Art.141.
In 1980, respondents were found to be involved in
the espionage racket and were dismissed from service
by invoking the doctrine of pleasure as enshrined under
Article 310 of the Constitution of India, 1950 coupled with H
330 SUPREME COURT REPORTS [2014) 4 S.C.R.
A the powers to be exercised under Section 18 of the Army
Act. The dismissal was unsuccessfully challenged before
the High Court and the Supreme Court. In the meanwhile,
a corrigendum came to be issued and the orders of
dismissal were described as orders of termination. On
B account of the substituted termination order, a decision
for deducting 5% of the gratuity amount was taken, which
was communicated afresh. This resulted in a fresh
ground of challenge. The Division bench of the High
Court while refusing to interfere with the termination order
c allowed the appeal in relation to the post-retiral benefits
and held that the proposed 5% cut-off was not in
accordance with the Act/Rules. Several LPAs were filed
by other officers relying on the Division Bench judgment
extending the post-retiral benefits claimed a similar relief.
When these appeals came up for hearing, the Division
0
Bench of the High Court hearing the matter differed with
the view on the issue of the applicability of doctrine of
pleasure and maintainability of the writ petitions on the
ground of malafides. Consequently, this question of law
was referred to be a larger bench. The Full Bench held
E that an order under Section 18 of the Army Act invoking
the doctrine of pleasure was subject to judicial review if
it is assailed on malafides. It was held that the onus lay
on the petitioner/person alleging malafides and to bring
material on record to satisfy the court in order to justify
F the interference. Aggrieved, the Union of India filed the
Special Leave Petition, which stood dismissed.
After the answer of reference, the pending appeals
were taken up for decision by the High Court. On account
G of the answer given by the Full Bench, fresh petitions
were filed by those officers whose petitions had been
dismissed earlier upto this Court in 1980. Some writ
petitioners, whose petitions had been dismissed by
Single Judge, filed LPAs with applications for
H condonation of delay. Appeals were also filed against
UNION OF INDIA v. MAJOR S.P. SHARMA 331
those judgments that were given in the second round of A
litigation proposing to refuse 5% of the terminal benefits.
Thereafter two writ petitions that were filed afresh,
namely, in the case of Major SJ and HLS were heard
separately and dealt with the principle of res judicata and
B
constructive res judicata. The said writ petitions were
held to be barred by law. The LPAs which were filed with
applications for condonation of delay and also against
the judgment proposing 5% cut-off in the terminal
benefits were heard by another Division Bench. After
almost 3 years, the Division Bench allowed the appeals.
c
Therein, it was held that the proceedings initiated against
the writ petitioners as also against other officers, who
were appellants in the other LPAs, were vitiated as there
was no material to support the impugned orders of
termination which were camouflaged and thus, the same D
were subject to judicial review. Accordingly, by judgment
dated 21.12.2000, the relief of consequential benefits was
granted after setting aside the order of termination. The
two officers, namely, SJ and HLS whose writ petitions had
been dismissed on the ground of constructive res E
judicata, filed special leave petitions were finally
dismissed by applying the principles of constructive res
judicata.
The questions which have arisen in these appeals F
were: Whether the exercise of doctrine of pleasure under
Section 18 of the Army Act read with Article 310 of the
Constitution in absence of any material evidence against
the respondent- officer and the non production of
relevant records/files of these officers rendered the order G
of termination as illegal and invalid; whether the order of
termination is arbitrary, capricious, unreasonable and
violative of Articles 14,16,19 and 21 of the Constitution of
India; whether the order of termination passed by the first
appellant in absence of material evidence and improper
H
332 SUPREME COURT REPORTS [2014] 4 S.C.R.
A exercise of power by the first appellant amount to fraud
being played on the respondent officers and are vitiated
in the law on account of legal malafides and legal malice;
whether the order of dismissal of the earlier writ petitions
and confirmation of the same by this court amounts to
B "Doctrine of Merger" and operates as res judicata against
the instant appeals.
Disposing of the appeals, the Court
HELD: 1. The provisions of Article 311 of the
C Constitution, admittedly, cannot be invoked in the case
of employees/officers of Armed Forces. Article 311 relates
to the domain of civilian employees/officers service
jurisprudence. Since the protection of Article 311 cannot
be claimed in the case of employees of armed forces, no
D enquiry as to whether the order is by way of a
punishment, which is the sine qua non for applicability
of Article 311, is warranted. The legal issue required to
be considered by this Court in the context of the fact as
to whether by virtue of anything contained in the
E language of Article 310 or the other provisions of the
Constitution, the constitutional power under Article 310
can be construed to be limited to cases of termination
simpliciter. [para 22] [358-C-E]
F 2. A perusal and scrutiny of all the materials showed
that the High Court has committed grave error of record
and there was total non-application of mind in recording
the findings. From the record, it is evidently clear that the
inquiry against the respondents were initiated by the
Army Headquarters, Director of Military Intelligence. The
G file traveled from Chief of the Army Staff to Ministry of
Defence with the strong recommendation to terminate the
services of the respondents in the interest of security of
the State as there was some material to show that these
officers were involved in espionage cases. The
H
UNION OF INDIA v. MAJOR S.P. SHARMA 333
recommendation for termination of their services up to the A
Defence Ministry was finally approved by the Prime
Minister who also happened to be the Defence Minister
of India at that time. The file was then placed before the
President of India who in exercise of the constitutional
power terminated the services of these officers.The link B
file further revealed that confessional statements of
officers were also recorded and strong prima facie case
was found relating to the involvement of these officers
in espionage activities and sharing information with the
Pakistani intruders. [para 48, 49] [371-A-E] c
3. On assessing the materials contained in link file
and the notings showing the suggestions and
recommendations up to the level of defence ministry and
the Prime Minister, it cannot be held that the impugned
order of termination of services have been passed D
without any material available on record. There is no ·
dispute that order of termination passed against the Army
personnel in exercise of 'pleasure doctrine', is subject to
judicial review, but while exercising judicial review, this
court cannot substitute its own conclusion on the basis E
of materials on record. The Court exercising the power
of judicial review has certain limitations, particularly in the
cases of this nature. The safety and security of the nation
is above all/everything. When the President in exercise
of its constitutional power terminates the services of the F
Army officers, whose tenure of services are at the
pleasure of the President and such termination is based
on materials on record, then this court in exercise of
powers of judicial review should be slow in interfering
with such pleasure of President exercising constitutional G
power. In a constitutional set up, when office is held
during the pleasure of the President, it means that the
officer can be removed by the Authority on whose
pleasure he holds office without assigning any reason.
H
334 SUPREME COURT REPORTS [2014] 4 S.C.R.
A The Authority is not obliged to assign any reason or
disclose any cause for the removal. Thus, it is not a case
where the decisions to terminate the services of these
officers were taken under the 'pleasure doctrine' without
any material against the officers. On perusal of the link file
s it was further revealed that detailed investigation was
conducted and all evidence recorded were examined by
the Intelligence Department and finally the Authority came
to the finding that retention of these officers were not
expedient in the interest and security of the State.
c Sufficiency of ground cannot be questioned, particularly
in a case where termination order is issued by the
President under the pleasure doctrine. [Paras 50 to 52)
[371-F-H; 372-A-F]
State of Rajasthan & Ors. vs. Union of India & Ors. 1977
D (3) sec 592: 1978 (1) SCR 1 - relied on.
4. Article 309 empowers the appropriate legislature to
regulate the recruitment and conditions of services of
persons appointed in public services and posts in
E connection with the affairs of the Union or the State. But
Article 309 is subject to the provisions of the Constitution.
Hence, the Rules and Regulations made relating to the
conditions of service are subject to Articles 310 and 311
of the Constitution. The Proviso to Article 309 confers
F powers upon the President in case of services and posts
in connection with the affairs of the Union and upon the
Governor of a State in connection with the services and
posts connected with the affairs of the State to make rules
regulating the recruitment and the conditions of services
G of the persons appointed. The service condition shall be
regulated according to such rules. Article 310 provides
that every person, who is a member of the defence service
or of a civil service of the Union or All India Service, or any
civil or defence force shall hold such posts during the
H
UNION OF INDIA v. MAJOR S.P. SHARMA 335
pleasure of the President. Similarly, every person who is A
a Member of the Civil Services of a State or holds any civil
post under a State, holds office during the pleasure of the
Governor of the State. The opening word of Article 310
"Except as expressly provided by this Constitution"
makes it clear that a Government servant holds the office B
during the pleasure of the President or the Governor
except as expressly provided by the Constitution. [Paras
55, 56] [376-C-H; 377-A]
5. Clauses (i) and (ii) of Article 311 impose restrictions
upon the exercise of power by the President or the C
Governor of the State of his pleasure under Article 310
(1) of the Constitution. Article 311 makes it clear that any
person who is a member of civil services of the Union or
the State or holds civil posts under the Union or a State
shall not be removed or dismissed from service by an D
authority subordinate to that by which he was appointed.
Further, clause (ii) of Article 311 mandates that such
removal or dismissal or reduction in rank of the members
of the civil services of the Union or the State shall be only
after giving reasonable opportunity of hearing in respect E
of the charges leveled against him. However, proviso to
Article 311 (2) makes it clear that this clause shall not
apply inter-alia where the President or the Governor, as
the case may be, is satisfied that in the interest of the
security of the State it is not expedient to hold such F
enquiry. The expression "except as otherwise provided
in the Constitution" as contained in Article 310 (1) means
this Article is subject only to the express provision made
in the Constitution. No provision in the statute can curtail
the provisions of Article 310 of the Constitution. [Paras G
57, 58] [377-B-F]
6. The two Sections i.e. 18 and 19 are distinct and
apply in two different stages. Section 18 speaks about the
absolute discretion of the President exercising pleasure
doctrine. No provisions in the Army Act curtail, control or H
336 SUPREME COURT REPORTS [2014) 4 S.C.R.
A limit the power contained in Article 310(1) of the
Constitution. Article 309 enables the legislature or
executive to make any law, rule or regulation with regard
to condition of services without impinging upon the
overriding power recognized under Article 310 of the
B Constitution. The Army Act cannot in any way override
or stand higher than Constitutional provisions contained
in Article 309 and consequently no provision of the Army
Act could cut down the pleasure tenure in Article 310 of
the Constitution. There is no doubt, Article 309 has to be
c read subject to Articles 310 and 311 and Article 310 has
to be read subject to Article 311. In fact the 'pleasure
doctrine' is a Constitutional necessity, for the reasons
that the difficulty in dismissing those servants whose
continuance in office is detrimental to the State would, in
case necessity arises to prove some offence to the
0
satisfaction of the court, be such as to seriously impede
the working of public service. There is no dispute with
regard to the legal proposition that illegality, irrationality
and procedural non-compliance are grounds on which
E judicial review is permissible. But the question is as to
the ambit of judicial review. [Paras 59, 61 and 62] (378-A-
F; 380-B-D]
State of Uttar Pradesh and others vs. Babu Ram
Upadhayay (1961) 2 SCR 679; Moti Ram Deka (1964) 5 SCR
F 683; B.P. Singhal vs. U.0.1., (2010) 6 sec 331 - relied on.
7. Indisputably, defence personnel fall under the
category where President has absolute pleasure to
discontinue the services. Further as far as security is
concerned, the safeguard available to civil servants
G under Article 311 is not available to defence personnel as
judicial review is very limited. In cases where continuance
of Army officers in service is not practicable for security
purposes and there is loss of confidence and potential
risk to the security issue then such officers can be
H removed under the pleasure doctrine. As a matter of fact,
UNION OF INDIA v. MAJOR S.P. SHARMA 337
Section 18 of the Army Act is in consonance with the A
constitutional powers conferred on the President
empowering the President to terminate the services on
the basis of material brought to his notice. In such cases,
the Army officers are not entitled to claim an opportunity
of hearing. The pleasure doctrine can be invoked by the B
President at any stage of enquiry on being satisfied that
continuance of any officer is not in the interest of and
security of the State. It is therefore not a camouflage as
urged by the respondents. [Para 64] [383-F-H; 384-A-B]
8. The services of the respondents along with other C
permanent commissioned officers of the Indian Army
were terminated, since they were found suspected to be
involved in espionage activities. Aggrieved by the
termination order, the respondents, except two, filed writ
petitions before the High Court. These respondents D
challenged the said termination order as being illegal and
malafide. The High Court by order dated 21.4.1980
dismissed the writ petitions and held that the termination
was on account of pleasure doctrine.The Union of India
has been consistently contesting these petitions and this E
Court has found substance- in the argument of the
appellants that the High Court while delivering the
judgment dated 21.12.2000 overlooked this important
legal aspect of finality coupled with the doctrine of res
judicata. This aspect cannot be ignored and the issue of F
fact cannot be re-opened in the instant case as well as
has been done under the impugned judgment by relying
on certain material which the High Court described to
have been fraudulently withheld from the courts. Fraud
is not a term or ornament nor can it be presumed to exist G
on the basis of a mere inference on some alleged
material that is stated to have been discovered later on.
The discovery of a reinvestigated fact could have been
a ground of review in the same proceedings, but the same
cannot be made the basis for re-opening the issue H
338 SUPREME COURT REPORTS [2014] 4 S.C.R.
A through a fresh round of litigation. A fresh writ petition
or Letters Patent Appeal which is in continuation of a writ
petition cannot be filed collaterally to set aside the
judgment of the same High Court rendered in earlier
round of litigation upholding the termination order. The
B High Court has committed a manifest error by not lawfully
defining the scope of the fresh round of litigation on the
principles of res judicata and doctrine of finality. To
establish fraud, it is the material available which may lead
to the conclusion that the failure to produce the material
c was deliberate or suppressed or even otherwise
occasioned a failure of justice. This also, can be
attempted if legally permissible only in the said
proceedings and not in a collateral challenge raised after
the matter has been finally decided in the first round of
litigation. The judgment which had become final in 1980
0
also included writ petition filed by the respondent 'SPS'.
Once, this Court had put a seal to the said litigation vide
judgment dated 1.9.1980 then a second round of litigation
by the same respondents including 'SPS' in another writ
E petition was misplaced. [paras 65, 67) [384-D-E; 385-F-H;
386-A-F]
9. The very genesis of an identical challenge relating
to the same proceedings of termination on the pretext of
a 5% cut in terminal benefits was impermissible apart
F from the attraction of the principle of merger. This aspect
of finality, therefore, cannot be disturbed through a
collateral challenge. The principle of finality of litigation
is based on a sound firm principle of public policy. In the
absence of such a principle great oppression might
G result under the colour and pretence of law inasmuch as
there will be no end to litigation. The doctrine of res-
judicata has been evolved to prevent such an anarchy.
In a country governed by the rule of law, finality of
judgment is absolutely imperative and great sanctity is
H attached to the finality of the judgment and it is not
UNION OF !NOIA v. MAJOR S.P. SHARMA 339
permissible for the parties to reopen the concluded A
judgments of the court as it would not only tantamount
to merely an abuse of the process of the court but would
have far reaching adverse affect on the administration of
justice. It would also nullify the doctrine of stare decisis
a well established valuable principle of precedent which B
cannot be departed from unless there are compelling
circumstances to do so. The judgments of the court and
particularly the Apex Court of a country cannot and
should not be unsettled lightly. [Paras 68, 75, 76] [386-G;
388-E-H; 389-A] C
Naresh Shridhar Mirajkar vs. State of Maharashtra & Anr.
AIR 1967 SC 1: 1966 SCR 744; Mohd. Aslam vs. Union
of India AIR 1996 SC 1611: 1996 (3) SCR 782; Babu Singh
Bains etc. versus Union of India and Ors. etc., AIR 1997 SC
116: 1996 (6) Suppl. SCR 120; Khoday Distilleries Limited D
& Anr. vs. The Registrar General, Supreme Court of India,
(1996) 3 sec 114: 1995 (6) Suppl. SCR 190; M.
Nagabhushana vs. State of Kamataka & Ors., AIR 2011 SC
1113: 2011 (2) SCR 435 - relied on.
E
10. Precedent keeps the law predictable and the law
declared by this Court, being the law of the land, is
binding on all courts/tribunals and authorities in India in
view of Article 141 of the Constitution. The judicial system
"only works if someone is allowed to have the last word"
and the last word so spoken is accepted and religiously F
followed. The doctrine of stare decisis promotes a
certainty and consistency in judicial decisions and this
helps in the development of the law. Besides providing
guidelines for individuals as to what would be the
consequences if he chooses the legal action, the doctrine G
promotes confidence of the people in the system of the
judicial administration. Even otherwise it is an imperative
necessity to avoid uncertainty, confusion. Judicial
propriety and decorum demand that the law laid down by
the highest Court of the land must be given effect to. H
340 SUPREME COURT REPORTS [2014] 4 S.C.R.
A [Para 77) [389-A-D]
11. Violation of Fundamental Rights guaranteed
under the Constitution have to be protected, but at the
same time, it is the duty of the court to ensure that the
decisions rendered by the court are not overturned
9
frequently, that too, when challenged collaterally as that
was directly affecting the basic structure of the
Constitution incorporating the power of judicial review of
this Court. There is no doubt that this Court has an
extensive power to correct an error or to review its
C decision but that cannot be done at the cost of doctrine
of finality. An issue of law can be overruled later on, but
a question of fact or, as in the present case, the dispute
with regard to the termination of services cannot be
reopened once it has been finally sealed in proceedings
D inter-se between the parties up to this Court way back
in 1980. [Para 84) [393-B-D]
Rupa Ashok Hurra v. Ashok Hurra & Anr. AIR 2002 SC
1771: 2002 (2 ) SCR 1006; Magan/a/ Chhaganlal (P) Ltd.
E v. Municipal Corporation of Greater Bombay AIR 1974 SC
2009: 1975 (1) SCR 1; Ambika Prasad Mishra v. State of
U.P. & Anr. AIR 1980 SC 1762: 1980 (3) SCR 1159 - relied
on.
12. The term 'dismissal' in the original order was
F substituted by the term 'termination' issuing the
corrigendum to ratify a mistake committed while issuing
the order. In fact, the competent authority had taken a
decision only to terminate, and therefore it was found
necessary to issue the corrigendum. However, in view of
G such substitution of word 'dismissal' by the term
'termination', does not tilt the balance in favour of the
respondents. More so, the proposed 5% deduction had
been withdrawn, and therefore the issue did not survive.
Analysing entire facts of the case and the material
H produced in Court and upon an exhaustive consideration
UNION OF INOIA v. MAJOR S.P. SHARMA 341
of the matter, the power of pleasure exercised by the A
President in terminating the services of the respondents
did not suffer from any illegality, bias or malafide or based
on any other extraneous ground, and the same cannot
be challenged on the ground that it is a camouflage. The
onus lay on the respondent-officers who alleged B
malafides. There was no credible evidence to hold that
the order of termination is baseless or malafide. [Paras
85, 86] [393-D-H; 394-A]
Mathura Prasad Bajoo Jaiswal & Ors. v. Dossibai N.B.
Jeejeebhoy (1970) 1 SCC 613: 1970 (3) SCR 830 - held C
inapplicable
Union of India & Ors. vs. Ranbir Singh Rathaur & Ors.
(2006) 11 SCC 696: 2006 (3) SCR 193; Union of India vs.
S.P. Sharma (2013) 10 SCC 150; Moti Ram Deka vs. North D
East Frontier Railways (1964) 5 SCR 683; Ram Sarup vs.
Union of India AIR 1965 SC 247: 1964 (5) SCR 931; Chief
of Army Staff vs. ·Major Dharam Pal Kukrety (1985) 2 SCC
412: 1985 (3) SCR 415; Gopal Krishnaji Ketkar vs.
Mahomed Haji Latif & Ors. 1968 (3) SCR 862; Ghaio Mall & E
Sons vs. State of Delhi & Ors. 1959 SCR 1424; l.R. Coelho
vs. State of Tamil Nadu (2007) 2 SCC 1: 2007 (1) SCR 706;
Ravi Yashwant Bhoir vs. District Collector, Raigad & Ors.
(2012) 4 SCC 407: 2012 (3) SCR 775; S.R. Bommai and
Ors. vs. Union of India and Ors., (1994) 3 SCC 1: 1994 (2)
SCR 644; Mathura Prasad Bajoo Jaiswal vs. Dossibai N.B. F
Jeejeebhoy (1970) 1 SCC 613: 1970 (3) SCR 830;
Supreme Court Employees' Welfare Association vs. Union of
India and Anr. (1989) 4 SCC 187: 1989 (3) SCR 488; Isabella
Johnson (Smt.) vs. M.A. Susai(dead) by LRs. (1991) 1 SCC
494: 1990 (2) Suppl. SCR 213; Kishan Lal vs. State of J&K G
(1994) 4 SCC 422: 1994 (2) SCR 149; Jay Laxmi Salt.
Works (P) Ltd. vs. State of Gujarat (1994) 4 SCC 1; V.
Rajeshwari (Smt) vs. T. C. Saravanabava (2004) 1 SCC 551:
2003 (6) Suppl. SCR 927; Maneka Gandhi vs. Union of
India & Anr. (1978) 1 SCC 248: 1978 (2) SCR 621; Union H
342 SUPREME COURT REPORTS [2014] 4 S.C.R.
A of India & Ors. v. Ranbir Singh Rathaur & Ors., (2006) 11 SCC
696: 2006 (3) SCR 193 - referred to.
Case Law Reference:
2006 (3) SCR 193 referred to Para 16
B
(2013) 10 sec 150 referred to Para 19
(201 O) 6 sec 331 referred to Para 20
(1964) 5 SCR 683 referred to Para 20
c 1964 (5) SCR 931 referred to Para 20
1985 (3) SCR 415 referred to Para 23
1968 (3) SCR 862 referred to Para 28
D 1959 SCR 1424 referred to Para 28
2007 (1) SCR 706 referred to Para 29
(2010) 6 sec 331 relied on Paras 30, 60
2012 (3) SCR 775 referred to Para 31
E
1994 ( 2) SCR 644 referred to Para 32
1970 (3) SCR 830 referred to Para 35
1989 (3) SCR 488 referred to Para 35
F 1990 (2) Suppl. SCR 213 referred to Para 35
1994 (2) SCR 149 referred to Para 35
(1994) 4 SCC 1 referred to Para 37
G 2003 (6) Suppl. SCR 927 referred to Para 38
1978 (2) SCR 621 referred to Para 38
1978 (1) SCR 1 relied on Para 53
(1961) 2 SCR 679 relied on Para 59
H
UNION OF INDIA v. MAJOR S.P. SHARMA 343
(1964) 5 SCR 683 relied on Para 59 A
1966 SCR 744 relied on Para 60
1996 (3) SCR 782 relied on Para 71
1996 (6) Suppl. SCR 120 relied on Para 72
B
1995 (6) Suppl. SCR 190 relied on Para 73
2011 (2) SCR435 relied on Para 74
2002 (2) SCR 1006 relied on Para 78
c
1975 (1) SCR 1 relied on Para 79
1980 (3) SCR 1159 relied on Para 80
1970 (3) SCR830 held inapplicable Para 82
2006 (3) SCR 193 referred to Para 83 D
CIVIL APPELLATE JURISDICTION : Civil Appeal Nos.
2951-2957 of 2001.
From the Judgment & Order dated 21.12.2000 of the High
Court of Delhi at New Delhi in LPAs No. 4/87, 43/87, 139/87, E
148/87, 21/88, 77/93 and 86/94.
Paras Kuhad, ASG, P.P. Rao, Kiran Suri, A.K. Panda,
Jitin Chaturvedi, R. Balasubramaniam, Abhinav Mukherjee,
B.V. Bairam Das (A.C.), Amrita Sanghi, Aditi, Nar Hari Singh, F
Vikas Mehta, Major K. Ramesh, Archana Ramesh, Dr. Kailash
Chand, Akshat Kulshrestha, Swarendu Chatterjee, Surajit
Bhaduri, Kameshwar Gumber, Koshima Arora, Kiran Mathur,
Dr. Kailash Chand, Dipak Bhattacharya, S. Shekhar, Harman
Guliani, Dr. Vipin Gupta, Ritika Gambhir, A.J. Amith for the G
Appearing parties.
1
The Judgment of the Court was delivered by
H
344 SUPREME COURT REPORTS [2014] 4 S.C.R.
A M.Y. EQBAL, J. 1. These appeals have been filed against
the common judgment and order dated 21.12.2000 passed by
Delhi High Court in LP.A. Nos. 4, 43, 139, 148of1987, 21 of
1988, 77 of 1993 and 86 of 1994. By the said judgment, the
High Court allowed the appeals preferred by the respondents
B and quashed not only their termination orders but also the
General Court Martial (hereinafter referred to as 'GCM')
proceedings held against Captain Ashok Kumar Rana and
Captain R.S. Rathaur.
2. Before we proceed with the matter, it would be
C appropriate to highlight the factual background and brief history
of the case.
In February 1971, Gunner Sarwan Dass was cultivated by
Pakistan Intelligence. In 1972 Captain Ghalwat and Gunner
D Sarwan Dass crossed the international border. In 1973 Captain
Ghalwat and Gunner Sarwan Dass were posted in Sabina
(M.P.). In 1974 Gunner Aya Singh was cultivated by Gunner
Sarwan Dass for Pak Intelligence. Captain Nagial was then
cultivated by Aya Singh for Pak Intelligence. In 1975 for the first
E time the espionage racket came to be noticed. Aya Singh and
Sarwan Dass were arrested. In 1976-77 pursuant to the
investigation, three more jawans were arrested. They
· corroborated the involvement of Sarwan Dass. Sarwan Dass
and Aya Singh on further interrogation disclosed the names of
F Captain Ghalwat and Captain Nagial. In 1976-77 Captain
Ghalwat and Captain Nagial were tried by GCM and were
convicted. Ghalwat was cashiered and given 14 years' RI.
Nagial was given 7 years' RI and. was also cashiered. In
addition, 12 jawans were tried and they were given RI of various
G descriptions and were dismissed from services. Aya Singh and
Sarwan Dass were also among the 12 jawans tried and held
guilty. Later in 1978 it was discovered that Aya Singh was
holding back certain relevant information relating to espionage
activities under certain alleged threat and pressure. Wife of Aya
Singh claimed to be killed. Reeling under the shock of the
H
UNION OF INDIA v. MAJOR S.P. SHARMA 345
[MY EQBAL, J.]
circumstances, he made further disclosures wherein he named A
Captain Rathaur and Captain AK. Rana; disclosed that he had
been receiving threats that if he disclosed anything his wife
would be killed. Accordingly, in 1978 Captain Rathaur and
Captain A.K. Rana were interrogated. As a result, 42 army
personnel i.e. 19 officers, 4 il!nior commissioned officers B
(JCOs) and 19 other ranks (ORs), were arrested.
Out of the 19 officers, 3 officers were tried by GCM, two
were convicted, namely, Captain Ranbir Singh Rathaur and
Captain A.K. Rana, and one was acquitted. Captain Ranbir C
Singh Rathaur and Captain A.K. Rana were sentenced to RI
for 14 years each and were cashiered. Against 13 officers,
disciplinary actions were initiated. However, a decision was
taken not to try them and an administrative order under Section
18 of the Army Act, 1950 (in short "the Army Act") was passed D
terminating their services.
3. The present appeals arise out of the order passed way
back in 1980 terminating the services of the respondents
h.erein which were brought invoking the doctrine of pleasure as
enshrined under Article 310 of the Constitution of India, 1950 E
(hereinafter referred to as the 'Constitution') coupled with the
powers to be exercised under Section 18 of the Army Act.
Initially, the orders of dismissal were passed on 11.1.1980,
. which were assailed in nine writ petitions that were dismissed
by the High Court of Delhi on 21.4.1980. The special leave F
petitions against these writ petitions came to be dismissed by
this Court on 1.9.1980.
4. In the meanwhile, a corrigendum came to be issued, as
a result whereof, the orders of dismissal were described as
orders of termination. On account of the substituted termination G
order, a decision for deducting 5% of the gratuity amount was
taken, which was communicated afresh. These orders made
a fresh ground of challenge before a learned Single Judge of
the Delhi High Court. The learned Single Judge dismissed the
petition by a detailed judgment dated 22.3.1985. H
346 SUPREME COURT REPORTS [2014] 4 S.C.R.
A Simultaneously, one Captain R.S. Rathaur had filed a Writ
Petition No.1577 of 1985 under Article 32 of the Constitution
before this Court, which stood dismissed refusing to re-open
the issues already decided.
B 5. Against the order of the learned Single Judge dated
22.3.1985, several Letters Patent Appeals were filed. One of
the appeals, being LPA No.116 of 1985, filed by one N.D.
Sharma, was decided vide judgment dated 19.8.1986
upholding the order of termination approving the applicability
of the doctrine of pleasure. However, at the same time, the
C appeal was partly allowed in relation to the post-retiral benefits
keeping in view the provisions under the Army Act and Rules
and· it was found that the proposed 5% cut-off was not in
accordance with the AcVRules applicable therein.
D 6. Several LPAs were filed by other officers relying on the
Division Bench judgment extending the post-retiral benefits, and
a plea for similar relief was raised.
7. When these appeals came up for hearing, the Division
E Bench of the Delhi High Court hearing the matter differed with
the view on the issue of the applicability of doctrine of pleasure
and maintainability of the writ petitions on the ground of
malafides vide order dated 15.5.1991. Consequently, this
question of law was referred to be decided by a larger bench.
F 8. The Full Bench so constituted to answer this reference
held that an order under Section 18 of the Army Act invoking
the doctrine of pleasure was subject to judicial review if it is
assailed on malafides. It was held that the onus lay on the
petitioner/person alleging malafides and to bring material on
G record to satisfy the court in order to justify the interference.
Aggrieved, the Union of India filed the Special Leave Petition,
which stood dismissed.
9. It appears that after the answer of reference, the pending
H appeals were taken up for decision by the High Court. On
UNION OF INDIA v. MAJOR S.P. SHARMA 347
[M.Y. EQBAL, J.]
account of the answer given by the Full Bench, fresh petitions A
were filed by those officers whose petitions had been dismissed
earlier upto this Court as referred to hereinabove, in 1980.
Some writ petitioners, whose petitions had been dismissed by
learned Single Judge, filed Letters Patent Appeals with
applications for condonation of delay. Appeals were also filed B
against those judgments that were given in the second round
of litigation proposing to refuse 5% of the terminal benefits
referred to hereinabove. These categories of petitions were
described by the Division Bench hearing the matter in its order
dated 2.5.1995, as under :- c
"LPA 77/93 & CM 823/95
In these batch of cases, we find there are at least two
LPAs which are directed against the Judgments of
dismissal of the writ petitions holding that the particular D
issue cannot be gone into in writ jurisdiction. Learned
counsel for the appellants in those two cases rely upon the
Full Bench Judgment and the recent Supreme Court
Judgment to contend that the issue can be gone into by
the Court. They have also wanted us to call for certain E
records from the respondents and in regard to those
records, respondents are claiming privilege and that is a
matter to be decided.
There is another group of cases in which fresh writ
petitions are filed on the ground that notwithstanding the F
dismissal of the earlier writ petitions or dismissal of the
S.L.Ps, fresh writ petitions are maintainable inasmuch as
it is only now that the Full Bench and the Supreme Court
have decided that the particular issue can be gone into by
the High Court. In that batch of cases the question of res G
judicata falls for consideration.
There is yet another group of cases where writ petitions
were dismissed by the learned Single Judges on the
ground that the Court cannot go into the issue and the H
348 SUPREME COURT REPORTS [2014] 4 S.C.R.
A LPAs were preferred with application for condonation of
delay with delay of more than 9 years.
There is yet another group of cases where writ petitions
were filed against some latter orders passed by the
Government imposing a cufof 5% from the pension and
B
upon dismissal of the writ petitions challenging the said
orders, LPAs have been filed and in those appeals the
appellants want to take up th~· issue, that the Court can go
into the validity of the order of dismissal order once again.
c Inasmuch as there are four classes of cases, we are of the
view that first we should decide the batch where fresh writ
petitions are filed, and in case we hold that fresh writ
petitions are maintainable, then the question of going into
the privilege claimed by the respondents will have to be
D decided. If the fresh writ petitions are held to be
maintainable, then the batch wherein appeals are filed with
delay condonation applications can also be taken up for
consideration. In one case the question of laches is to be
decided whereas in another the question of sufficient
E cause for condonation of delay fall for consideration. In the
matters challenging the orders imposing cut in pension, it
will be for the parties to watch the view the court may take
in other three batches mentioned above so that they can
pursue one or the other remedies which the Court will be
F able to accept.
Therefore, we will first take up fresh writ petitions filed after
the passing of the full Court Judgment and the Supreme
Court Judgment."
G 10. Thereafter two writ petitions that were filed afresh,
namely, in the case of Major Subhash Juneja and Harish Lal
Singh, were heard separately and dealt with the principle of res
judicata and constructive res judicata. The said writ petitions
were held to be barred by law vide judgment dated 8.3.1996.
H The other connected petitions also appeared to have been
UNION OF INDIA v. MAJOR S.P. SHARMA 349
[M.Y. EQBAL, J.)
dismissed as not maintainable by another Division Bench vide A
order dated 7.9.1992.
11. The Letters Patent Appeals which were filed with
applications for condonation of delay and also against the
judgment proposing 5% cut-off in the terminal benefits were B
heard by another Division Bench that reserved the judgment on
14.8.1998 by passing the following order:
"LPA Nos.4/87, 43/87, 139/87, 148/87, 21/88, 77/93, 86/
94 and C.W. Nos.3063/95, 4082/95:
c
Synopses have been placed on record. Mr. Tikku
states that by 17.8.1998, photocopy of the relevant record
will be made available to Court. Originals have been
shown to us.
D
Judgment reserved."
12. The Division Bench that went on to reserve the said
judgment delivered it after almost 3 years and allowed the
appeals. Therein, it was held that the proceedings initiated
against the writ petitioners as also against other officers, who E ·
were appellants in the other LPAs, were vitiated as there was
no material to support the impugned orders of termination
which were camouflaged and thus, the same were subject to
judicial review. Accordingly, vide judgment dated 21.12.2000,
the relief of consequential benefits was granted after setting F
aside the order of termination. The relevant part thereof is
extracted herein:
"On a consideration of all the facts and circumstances we
are of th~ view that there is no other conclusion possible G
except to say that the orders which are the subject matter
of the writ petitions and in the Letters Patent Appeals are
merely camouflage and orders have been passed for
extraneous reasons under the cloak of innocuous form of
orders of termination. To give an air on verisimilitude the
H
350 SUPREME COURT REPORTS (2014] 4 S.C.R.
A respondents had held the Court Martial proceedings which
are wholly void.
Accordingly, we declare that the proceedings initiated
against the petitioners in the two writ petitions are void in
law and the orders passed against the other officers, the
B
appellants in LP.As. are vitiated being without any material
and being camouflage. Having dropped the idea not to
conclude Court Martial proceedings knowing fully well that
the officers were likely to be acquitted, without producing
relevant record before the concerned authority orders of
c termination were passed flouting all norms. The appellants
in the LP.A's.-and the petitioners in the two writ petitions
are entitled to all the consequential benefits. We also
hereby declare that the orders passed against the
appellants in the LP.As are void in law and the conviction
D and sentence by the GCMs against the writ petitioners are
void in law. Consequently, the judgments of the learned
Single Judge which are subject matter in Latent Patent
Appeals are set aside and the writ petitions in those cases
are allowed and the Letters· Patent Appeals stand allowed
E and the two writ petitions also stand allowed. All the writ
petitions stand allowed to the above extent indicated and
other reliefs prayed for cannot be considered by this Court
and it is for the law makers to attend to the same. There
shall be no order as to costs."
F
13. Another relevant event in this journey of judicial conflict
which is worth mentioning is that two officers, namely, Subhash
Juneja and Harish Lal Singh, whose writ petitions had been
dismissed on the ground of constructive res judicata, filed
G special leave petitions that were converted to Civil Appeal Nos.
1931 and 1932of1997 and were finally dismissed by a three-
Judge Bench of this Court vide order dated 23.4.2003, which
is quoted as under:
"The grievance of the appellants that is sought to be
H agitated in these appeals is already settled by an earlier
UNION OF INDIA v. MAJOR S.P. SHARMA 351
[M.Y. EQBAL, J.]
judgment of the Delhi High Court in a Writ Petition filed by A
the appellants themselves. The appellants herein
challenged the said judgment by filing Special Leave
Petitions and those Special Leave Petitions having been
dismissed by this Court, the contentions raised by them
have been finally decided against the appellants herein. B
The appellants are now trying to re-agitate
those issues because the High Court in some other case
has taken a different view. Mr. Yogeshwar Prasad, the
learned senior counsel appearing for the appellants states C
that these cases should be heard along with the cases of
Union of India which are pending against the latter view of
the High Court. We find no reason to do so. The
contention of the appellant raised was rightly
dismissed by the High Court in the impugned
judgment by applying the principles of constructive D
res judicata. The appeals are accordingly dismissed."
(Emphasis added)
14. Thus, it can be seen from the narration of facts E
hereinabove that with regard to some of the officers, who were
involved in this very incident, the evidence which had already
· been assessed by the High Court, had been looked into and it
was found that the doctrine of pleasure had been upheld in the
earlier round of litigation and, therefore, the matter stood
foreclosed and could not be reopened. The adjudication, F
therefore, between the Union of India who is the present
appellant and the officers who were involved in the same set
of incidents had attained finality up to this Court. It was in this
background that the Union of India filed the appeals in the year
2001 against the judgment dated 21.12.2000 referred to G
hereinabove. The judgment dated 21.12.2000 in relation to all
the four sets of litigations that have been referred to by the High
Court in its order dated 2.5.1995 is, therefore, extracted
herein above.
H
352 SUPREME COURT REPORTS [2014] 4 S.C.R.
A 15. The appeals filed by the Union of India, pending before
this Court against the judgment dated 21.12.2000, were split
into two parts by the order of this Court dated 14.2.2006, which
is extracted herein:
"C.A. Nos.2949-2950/2001:
B
Arguments heard.
Judgment reserved.
The entire original record including the administrative
c receipts be called for either by FAX or by telephonic
message immediately by the Registrar (Judicial}.
C.A.Nos.2951-2957/2001:
o De-linked.
These matters shall be heard separately. List after four
months."
16. Accordingly, the arguments were heard and judgment
E was reserved in the matter arising out of the two writ petitions
filed by Ranbir Singh Rathaur and Ashok Kumar Rana alongwith
which delinked seven LPAs were also disposed of even though
it was observed by this Court that they arose out of the same
incident. This Court vide judgment dated 22.3.2006 in the case
F of Union of India & Ors. vs. Ranbir Singh Rathaur & Ors.,
(2006} 11 sec 696 reversed the judgment of the High Court
dated 21.12.2000 vis-a-vis the two writ petitions and held as
follows:
"On a bare reading of the High Court's order and the
G
averments in the writ petitions, one thing is crystal clear
that there was no definite allegation against any person
who was responsible for the so-called manipulation. It is
also not clear as to who were the parties in the writ
petitions filed. In the grounds indicated in the writ petitions
H
UNION OF INDIA v. MAJOR S.P. SHARMA 353
[M.Y. EQBAL, J.]
it was stated that there is no bar or impediment on the A
High Court reviewing the petitioner's case as also
connected cases to enquire into the validity of the acts
done against the writ petitioner. Therefore, it was an
accepted position that the writ petitioners wanted
review of the High Court's order, which is clearly B
impermissible. No ground for seeking such review
apparently was made out. In any event we feel that the
High Court's approach is clearly erroneous. The
present appellants in the counter-affida'lit filed had raised
a preliminary objection as regards the maintainability c
of the writ petitions and had requested the High Court
to grant further opportunity if the necessity so arises to file
a detailed counter-affidavit after the preliminary objections
were decided. The High Court in fact in one of the
orders clearly indicated that the preliminary objections 0
were to be decided first But strangely it did not do so. It
reserved the judgment and delivered the final judgment
after about three years. There is also dispute as to
· whether the relevant documents were produced. What
baffles us is that in the High Court, records with original E
documents were shown to it and the Bench wanted the
copies to be filed. In the impugned judgment the High
Court proceeded on the basis as if only a few pages
of the files were shown. If that was really the case,
there was no necessity for the High Court to direct the
present appellants to file copies. If after perusal of the F
documents the High Court felt that these were not
sufficient the same would have been stated. But that
does not appear to have been done. The High Court
also had not discussed as to how the matters which stood
concluded could he reopened in the manner done. No G
sufficient grounds have been even indicated as to why the
High Court felt it necessary to do so. To say that though
finality had been achieved, justice stood at a higher
pedestal is not an answer to the basic question as to
whether the High Court was competent to reopen the H
354 SUPREME COURT REPORTS [2014] 4 S.C.R
A whole issue which had become concluded. The
persons whom the High Court felt were responsible for
alleged manipulation or persons behind false
implication were not impleaded as parties. Newspaper
reports are not to be considered as evidence. The
B authenticity of the newspaper reports was not established
by the writ petitioners. Even otherwise, this could not have
been done in a writ petition, as disputed questions of fact
were apparently involved. The matters which the High
Court found to have been established were really not so.
The conclusions were based on untested materials, and
c the writ petitioners had not established them by evidence.
Since the High Court has not dealt with the matter in the
proper perspective we feel that it would be proper for the
High Court to rehear the matter. The High Court shall first
decide the preliminary objections raised by the present
D appellants about the non-maintainability of the writ
petitions. Normally such a course is not to be adopted.
But in view of the peculiar facts involved, it would be the
appropriate course to be adopted in the present case.
Therefore, we remit the matter to the High Court for fresh
E hearing. We make it clear that whatever we have
observed should not be treated to be the conclusive
findings on the subject-matter of controversy. The
appeals are allowed without any order as to costs. Since
the matter is pending since Jong, we request the High
F Coutt to dispose of the matter as early as practicable,
preferably within four months from the date of receipt of
the judgment. No costs. " (Emphasis added)
17. On remand, the High Court dismissed the writ petitions
G vide judgment dated 20.12.2007 and the same has been
placed on record by the appellants.
18. So far these appeals are concerned, the High Court
by the impugned common order dated 21.12.2000, not only
quashed the termination orders but also court martial
H proceedings held against some of the officers.
UNION OF INDIA v. MAJOR S.P. SHARMA 355
[M.Y. EQBAL, J.]
19. The Division Bench of this Court, after hearing the A
counsel appearing for the parties and legal contentions urged,
formulated the following points for consideration by a larger
bench [Union of India vs. S.P. Sharma, (2013) 10 SCC 150)]:-
"31. With reference to the aforesaid rival factual and legal
8
contentions urged, the following points would arise for
consideration in these appeals:
31.1. Whether the orders of termination passed by the first
appellant in absence of material evidence and improper
exercise of power by the first appellant amount to fraud C
being played on the respondent officers and are vitiated
in law on account of legal malafides and legal malice?
31.2. Whether the order of dismissal of earlier writ
proceedings and confirming the same by this Court vide 0
order dated 1-9-1980 in relation to the same respondent
officers in C.As. Nos. 2951, 2954, 2955, 2956 and 2957
of 2001 amounts to doctrine of merger and operates as
res judicata against the present appeals?
31.3. Whether the exercise of doctrine of pleasure under E
Section 18 of the Army Act read with Article 310 of the
Constitution by the first appellant in the absence of any
material evidence against the respondent officers and non-
production of the relevant records/files of these officers
render the orders of termination as illegal and invalid? F
31.4. Whether the order of termination is arbitrary,
capricious, unreasonable and violative of Articles 14, 16,
19 and 21 of the Constitution of India?
31.5. Whether the impugned judgment and order of the G
High Court is vitiated either on account of erroneous
reasoning or error in law and warrant interference by this
Court?"
20. The learned Additional Solicitor General at the very H
356 SUPREME COURT REPORTS (2014] 4 S.C.R.
A outset submitted that issues involving security of the State were
extremely complex and the issue related to the expediency and
desirability of retaining officers in the Army who had become
security suspects. The instant cases ot the respondent officers
were examined at various levels in the Army Headquarters as
B also in the Central Government and the final decision to
exercise the power to pass an order of termination was taken
by it under Section 18 of the Army Act. Learned counsel relied
upon the judgment of this Court in B.P. Singhal vs. Union of
India & Ors. (2010) 6 SCC 331 and contended that the
c parameters that are required to .be taken into consideration for
exercise of power under Article 310 of the Constitution are
varied. Several of these parameters entail evaluation of issues
relevant to the security of the State. The factors that form the
basis of exercise of power under Article 310 of the Constitution
cannot be said to be objective parameters that are amenable
0
to judicially manageable standards. The reasons that form the
basis of exercise of power under Article 310 can extend to
varied levels of subjecti~e assessments and evaluations in
entailing expert knowledge as to issues of security of the State.
In that view of the matter it is submitted that exercise of power
E of judicial review woul<;I accord great latitude to the bona fide
evaluation made by the competent authorities in the course of
discharge of the duties. The correctness of the opinion formed
or the sufficiency of material forming the basis of their decision
to pass an order of termination would not be subjected to
F judicial scrutiny of either the High Court or this Court. Further,
placing strong reliance upon B.P. Singhal case, (supra) it is
contended by.the learned Additional Solicitor General that
exercise of power of judicial review under Article 310 is
extremely narrow and is limited to only one parameter, namely,
G violation of fundamentals of constitutionalism. The standard of
judicial review which applies to the case of exercise of .
executive or statutory or quasi-judicial power cannot be
extended to the case of judicial review of constitutional power
under Article 310. Learned counsel submitted that the fact that
H Article 311 does not .apply to the case of officers/employees
UNION OF INDIA v. MAJOR S.P. SHARMA 357
[M.Y. EQBAL, J.]
of armed forces, the power under Article 309 also cannot be A
exercised for limiting the ambit of Article 310. The Army Act is
an enactment under Article 309. The aforesaid legal principle
has been followed consistently in all subsequent decisions of
this Court. In this connection learned counsel relied upon the
judgment of this Court in Moti Ram Deka vs. North East B
Frontier Railways (1964) 5 SCR 683. Further, the Constitution
Bench of this Court in Ram Sarup vs. Union of India, AIR 1965
SC 247 with reference to Article 33 of the Constitution, has laid
down limitations provided on the applicability of fundamental
rights guaranteed to the officers/employees of the Army under c
Articles 14, 16 and 21 of the Constitution and under Section
21 of the Army Act. He has further contended that each of the
provisions of the Army Act also carries the sanction of
Parliament against the applicability of all other fundamental
· rights contained under Part Ill of the Constitution to the extent
0
to which the rights contained in the fundamental rights are
inconsistent with the provisions of the Army Act. The aforesaid
enunciation of law has again been followed consistently by this
Court in subsequent decisions.
21. The learned Additional Solicitor General further E
contended that in a matter of civilian employees, Article 311
represents a limitation over the absoluteness of pleasure
doctrine contained in Article 310. In Moti Ram Deka (supra)
and in the subsequent cases, this Court laid down that Article
311 introduces a twofold procedural safeguard in favour of an F
employee/officer in relation to the exercise of pleasure doctrine.
However, Article 311 applies only in cases of punishment and
not otherwise. The availability of the safeguards provided for
under Article 311 is contingent upon and limited to cases where
the power of termination of services of an employee/officer is G
exercised by the disciplinary authority by way of punishment.
The applicability of Article 311 of the Constitution being
dependent on the factum of the order of termination being in
the nature of a punishment, judicial review undertaken in case
of civilian employees entails the necessity for and the power H
.
358 SUPREME COURT REPORTS [2014] 4 S.C.R.
A of determining as to whether the order impugned is in the
nature of a punishment or not. The doctrine of "foundation'',
"camouflage" and the principles of judicial review,
encompassing the necessity and the power of determining,
whether the order impugned is by way of a punishment is thus
B a direct emanation and a logical corollary of the nature of
enquiry warranted when Article 311 applies to a case.
22. Since the provisions of Article 311 of the Constitution
admittedly do not apply to these cases, it relates to the domain
C of civilian employees/officers service jurisprudence, which is
controlled by Article 311, cannot be invoked in the case of
employees/officers of armed forces. Since the protection of
Article 311 cannot be claimed in the case of employees of
armed forces, no enquiry as to whether the order is by way of
a punishment, which is the sine qua non for applicability of
D Article 311, is warranted. The legal issue requires to be
considered by this Court in the context of the fact as to whether
by virtue of anything contained in the language of Article 310
or the other provisions of the Constitution, the constitutional
power under Article 310 can be construed to be limited to
E cases of termination simpliciter. It is contended on behalf of the
appellants that neither the language of Article 310 nor any other
provision of the Constitution warrants adoption of such a narrow
construction. Further, the learned Additional Solicitor General
has contended that this Court has consistently held that the ambit
F of the doctrine of pleasure, contained under Article 310, is an
absolute power, save to the extent provided otherwise by an
express provision of the Constitution. The only express
limitation on the power of Article 310 exists under the
Constitution in relation to the tenure of certain constitutional
G functionaries such as the Hon'ble Judges of the High Court and
the Supreme Court. He further contends, placing reliance upon
Moti Ram Deka (supra) that this Court has laid down the legal
principle; that the ambit of Article 310 is circumscribed only by
the provisions of Article 311 and that even Article 309 does not
H circumscribe the said power. The conferment c,f power upon
UNION OF INDIA v. MAJOR S.P. SHARMA 359
[M.Y. EQBAL, J.]
the President of India under Article 310 is in absolute terms. A
Therefore, there is no basis for suggesting that the power under
Article 310 ought to be construed as excluding the power to
dismiss an employee or officer for misconduct. The very fact
that Article 31 O makes the tenure subject to the absolute
pleasure of the President means that the President can B
exercise the said power for any reason and without assigning
any cause or reason and this is precisely what has been laid
down by this Court in B.P. Singhal (supra). He further
contends that the power under Article 310 also encompasses
the power to dismiss an employee or officer for misconduct and c
Article 311 is inapplicable in respect of an employee or officer
of the armed forces. It is further submitted that in case of armed
forces scrutiny of an order passed under Article 310 would
neither warrant an enquiry as to the foundation of the order nor
an enquiry as to whether the order is in the nature of
0
punishment. Therefore, he submits that the necessary corollary
thereof would be that the competent authority is also free to
abandon any statutory procedure at any stage and take resort
to the constitutional power under Article 310 by the President
to terminate the services of an employee/officer of the armed
forces. The ambit of such power cannot be circumscribed with E
reference to the concepts that govern the exercise of the power
in relation to civilian employees/officers.
23. Learned Additional Solicitor General put reliance on
Chief of Army Staff vs. Major Dharam Pal Kukrety, (1985) 2 F
SCC 412 where this Court has also upheld the competent
authority's power to switch over to its power under Section 18
of the Army Act upon abandonment of the GCM proceedings
against its employees/officers. The authorities are competent
to take recourse to their statutory power under Section 19 in a G
case where the court martial exercise initiated by them
becomes futile. It cannot be contended by the officer that where
alternative powers under the statute can be resorted to in such
situations the authority cannot resort to its constitutional power
under Article 310 but pass an order of termination against the H
360 SUPREME COURT REPORTS [2014] 4 S.C.R.
A officer of the Army. Such provision of the statutory power
including Section 19 of the Army Act can be said to be subject
to the limitations of the scheme of the Army Act. Power under
Article 310, which is constitutional power, is wider and certainly
cannot be subjected to the constraints flowing from the scheme
B of the Army Act. It is further contended that this Court has
examined the legality and validity of similar orders of
termination in exercise of power under Article 310 of the
Constitution by the President upholding the orders of
termination passed in exercise of the aforesaid constitutional
c statutory provisions.
24. Shri P.P. Rao, learned senior counsel appearing for
respondent Major S.P. Sharma, firstly brought to our notice the
sequence of the events happened so far as this respondent is
concerned. According to the learned counsel in spite of
D unblemished career and academic experience Major Sharma
was arrested in 1979 and was lodged in a cell and was denied
the basic facilities. The said respondent represented to the
Chief of Army Staff and Deputy Chief of Army Staff-GOC about
the inhuman treatment. However, in 1979 a charge report was
E handed over to the respondent on 14.04.1979 for which he was
arrested. It was alleged by the respondent that the army
authorities released false, defamatory and fabricated press
release stating that the respondent was the ring leader of the
group with 15 others and was spying for Pakistan, having
F received huge sum in Indian currency for passing of information
to Pakistan about the Indian Army. A second charge report was
handed over to the respondent. Later on a summary of evidence
was commenced.on the basis of false allegation.
Mr. Rao, then contended that about 27 prosecution
G witnesses were examined and all of them spoke about his
honesty and integrity and uprightness. Learned senior counsel
submitted that when the charges against the present respondent
were not substantiated he was released from arrest and
suspended from duties. He was granted leave and after that
H he was recalled for duty and an order of dismissal dated
UNION OF INDIA v. MAJOR S.P. SHARMA 361
[MY EQBAL, J.]
11.01.1980 was served and handed over to the respondent. A
Subsequently, by a corrigendum the order of dismissal of the
respondent was substituted by an order of termination.
25. Mr. Rao, has not disputed the fact that the said
respondent Major S.P. Sharma filed a writ petition being W.P. 8
No.418 of 1980 challenging the order of dismissal dated
11.01.1980. The said writ petition was dismissed by a Division
Bench of the Delhi High Court and against the said order the
respondent preferred a Special Leave Petition before this
Court being 7225 of 1980 which was also dismissed. When C
the order of dismissal attained finality, the respondent was
served with a show cause notice as to why a cut-off 5% in the
retirement gratuity and Death-Cum-Retirement Gratuity be not
imposed as his service was not satisfactory. The respondent
Sharma again challenged the said notice by filing a writ petition
in the High Court being W.P. No.1643of1982. In the said Writ D
Petition the respondent also challenged the order dated
03.03.1980 by which the dismissal was substituted by an order
of termination. The said writ petition was dismissed by the High
Court on 22.03.1985 holding that the said order of termination
is a termination simpliciter without being any stigma attached.· E
The said order was challenged by the respondent by filing LPA
No.77 of 1.993. The matter then travelled to a Full Bench and
finally concluded by the impugned order passed by the Division
Bench of the Delhi High Court.
F
26. Mr. P.P. Rao, learned senior counsel advanced his
argument on the points formulated by this Court and submitted
that the second writ petition cannot, at any stretch of
imagination, be held to be barred by the principles of res
judicata. Learned counsel further submitted that by issuing an G
order of termination in place of dismissal, the entire finding
recorded by the Court while considering the order of dismissal
got washed off, hence there can be no res judicata.
27. Mr. Rao then drew our attention to the counter affidavit
H
362 SUPREME COURT REPORTS [2014] 4 S.C.R.
A filed by the appellant Union of India before the High Court and
submitted that if the offence was so grave then the respondent
should have been punished instead of dismissal from service.
28. Mr. Rao vehemently argued by giving reference to the
finding recorded by the High Court that non-production of
8
records and the materials which are the basis for passing the
order of termination is wholly illegal, arbitrary and unjustified.
He reiterated that for the non-production of materials and
records in spite of being directed by the Court, adverse
inference has to be drawn. According to the learned senior
C counsel, withholding of documents by the constitutional authority
and the Government is a serious matter and, therefore, the High
Court has rightly held the order of termination bad in law. In this
regard learned counsel referred and relied upon the decisions
of this Court in Gopal Krishnaji Ketkar vs. Mahomed Haji Latif
D & Ors. 1968 (3) SCR 862 and Ghaio Mall & Sons vs. State of
Delhi & Ors., 1959 SCR 1424.
29. On the question of doctrine of pleasure, Mr. Rao firstly
contended that the constitutional provisions contained in Article
E 309, 310 and 311 are subject to Article 14 of the Constitution.
According to the learned counsel, Article 14, 15 and 21
constitute the core values and such right cannot be taken away
on the plea of doctrine of pleasure. In this connection he relied
on I. R. Coelho vs. State of Tamil Na du, (2007) 2 SCC 1.
F 30. Mr. Rao then contended that Article 33 of the
Constitution is in the nature of exception but it does not
abrogate the fundamental rights. In other words, Article 33 does
not speak about the basic structure of the Constitution. Learned
counsel relied upon the decision of this Court in B.P. Singhal
G vs. u.0.1., (2010) 6 sec 331.
31. Mr. Rao then contended that Article 33 in any event
shall be given restricted interpretation for the reason that any
law which restricts the fundamental rights shall be strictly
H interpreted. In this connection learned counsel referred to
UNION OF INDIA v. MAJOR S.P. SHARMA 363
[M.Y. EQBAL, J.]
(1974) 1 SCC 645: Bhut Nath Mete vs. State of West Bengal. A
Mr. Rao addressed on legal malice and malice in law and
referred a decision of this Court in Ravi Yashwant Bhoir vs.
District Collector, Raigad & Ors., (2012) 4 SCC 407.
32. Mr. Rao submitted that only notings were produced
B
before the High Court but the material on the basis of which
opinion was formed was not produced. The detailed summary
of evidence, different memos and other documents produced
in the court martial proceeding were also not produced before
the High Court. Learned counsel submitted that those notings
produced before the High Court are not material, rather advisory C
material. Learned counsel referred to some of the paragraphs
of the judgment rendered in S.R. Bommai and Ors. vs. Union
of India and Ors., (1994) 3 sec 1.
Learned counsel lastly submitted that although 5% cut in D
gratuity has been withdrawn by the appellant, the termination
has to be held as bad.
33. Mr. Deepak Bhattacharya, learned counsel appearing
on behalf of Major Ajwani in C.A. No.2953 of 2001, firstly
submitted that the order of termination under Section 18 of the E
Army Act is a colourable exercise of power which is arbitrary,
capricious and unreasonable. Learned counsel submitted that
the pleasure doctrine is the residual executive power under
Section 53 of the Constitution and hence amenable to judicial
review to ensure that the same follows the satisfaction of the
F
President after due application of mind and without any
arbitrary, capricious and un-reasonable exercise of power.
According to the learned counsel the respondent Major Ajwani
was arrested and kept in solitary confinement without being
informed of any reason for the same and, thereafter, criminal G
proceedings were initiated against him. It was contended that
the criminal proceedings against him was abandoned without
informing him any reason for the same and finally he was
illegally terminated under Section 18 of the Army Act.
H
364 SUPREME COURT REPORTS (2014] 4 S.C.R.
A 34. On the question of res judicata, learned counsel
submitted that there is no pleading of res judicata ever raised
by the appellant. However, learned counsel adopted the
argument advanced by Mr. P.P. Rao on the question of res
judicata.
B
35. Mrs. Kiran Suri, learned counsel appearing for Capt.
Arun Sharma and Capt. J.S. Yadav in C.A.No.2954 of 2001
and C.A.No. 2957 of 2001, firstly submitted that there is no
decision on merit in the earlier writ petition and, therefore, the
question of application of res judicata does not arise. The writ
c petition was dismissed since the pleasure doctrine was
invoked and it is open to judicial review. Learned counsel relied
upon the decision of this Court in Mathura Prasad Bajoo
Jaiswal vs. Dossibai N.B. Jeejeebhoy (1970) 1 SCC 613;
Supreme Court Employees' Welfare Association vs. Union of
D India and Anr. (1989) 4 SCC 187; Isabella Johnson (Smt.) vs.
M.A. Susai(dead) by LRs. (1991) 1 SCC 494 and Kishan Lal
vs. State of J&K (1994) 4 sec 422. Learned counsel then
contended that the issue involved in the later proceedings was
not an issue in the earlier proceedings inasmuch as the later
E writ petition was filed challenging the subsequent order
converting the order of dismissal to order of termination and
also a notification as to cut of gratuity.
36. Mrs. Suri then submitted that the order in the first
F proceeding is an order which has been the result of
suppression of documents/facts by the appellant when these
facts/documents were only within the knowledge of the
appellant. Hence suppression of facts and documents would
not entitle the appellant to raise the technical plea of res judicata
and to take advantage of the same. It was contended that the
G appellant is under the public duty to disclose the true facts to
the court which has not been done and it will amount to obtaining
the order by fraud.
37. On the issue of doctrine of pleasure Mrs. Suri submitted
H that exercise of doctrine of pleasure in the absence of any
UNION OF INDIA v. MAJOR S.P. SHARMA 365
[M.Y. EQBAL, J.]
material evidence against the respondent and non-production A
of relevant records of these officers render the order of
termination as illegal and invalid. Learned counsel submitted
that the justiciability of an action by the executive government
is open to challenge on the ground of malafide and also that
the formation of opinion is on irrelevant material. Learned B
counsel in this regard referred to a decision of this Court in the
case of 8.P. Singhal (supra) and Jay Laxmi Salt Works (P)
Ltd. vs. State of Gujarat (1994) 4 SCC 1. Lastly, it was
contended that the President has been misled without
producing the relevant material and on the basis of false and c
misleading noting, order was obtained which amount to fraud
and legal malafide.
38. Mr. AK. Panda, learned senior counsel appearing on
behalf of respondent Capt. V.K. Diwan in C.A. No.2956 of
2001, made his submission with regard to the interpretation of D
Articles 309, 310 and 311 of the Constitution. According to the
learned counsel Article 310 is not controlled by any legislation,
on the contrary it is contended that Article 310 is subject to
Article 309 or 311 of the Constitution. It was contended that the
respondent would have been exonerated had the court-martial E
proceedings been continued. But just to avoid court martial the
appellant took recourse to terminate the services by applying
the 'pleasure' doctrine. On the point of res judicata learned
counsel relied upon the decision in the case of V. Rajeshwari
(Smt) vs. T.C. Saravanabava, (2004) 1 SCC 551 and Maneka F
Gandhi vs. Union of India & another, (1978) 1 SCC 248.
39. Mr. Panda, learned senior counsel further contended
that in spite of the several opportunities given by the Delhi High
Court, the appellants failed to produce any material against the G
present respondents to satisfy the Court that the termination
was justified. Learned counsel submitted that the High Court
has carefully analysed all the facts of the case and recorded a
finding that the termination was wholly malafide and devoid of
any substance.
H
366 SUPREME COURT REPORTS [2014] 4 S.C.R.
A 40. Mr. Kameshwar Gumber, learned counsel appearing
on behalf of Ex.Major R.K. Midha (now deceased) in C.A. No.
2952 of 2009, at the very outset submitted that although the
respondent is dead now, the instant appeal is contested only
with an object to restore the honour and to remove the stigma
B cast on him and the family. Learned counsel, however, admitted
that the family of the deceased respondent has been getting
all pensionary benefits.
41. Ms. Amrita Sanghi, learned counsel appearing for the
respondent in C.A. No.2955 of 2001 on the issue of res
C judicata, firstly contended that the earlier writ petition filed by
the respondent challenging the order of dismissal was
dismissed up to this Court without going into the merit of the
case and the issue of malafide was not discussed. It was
contended that the second writ petition challenging the order
D of termination and the show cause notice for deducting 5% of
the gratuity was on the basis of a fresh cause of action
inasmuch as the dismissal of writ petition up to this Court put
an end to the proceedings of dismissal until the Government
came out with the order of termination with ulterior motives.
E Learned counsel then contended that this Court in the order
dated 17.11.1994 in Special Leave Petition agreed with the
Full Bench and the matter was sent back to the High Court for
decision on merit. It was for the first time the appellant-Union
of India made out a case that petitioners had been caught doing
F espionage activity and thus considered a security suspect.
Adopting the argument of Mr. P.P. Rao, learned senior counsel
submitted that Article 33 of the Constitution does not
contemplate restricting or abrogating the basic structure of the
Constitution or the core values of the Constitution.
G
42. First of all, we shall deal with the following important
points formulated by this Court referred hereinabove i.e.
(a) Whether the exercise of doctrine of pleasure under
Section 18 of the Army Act read with Article 310 of the
H Constitution in absence of any material evidence against
UNION OF INDIA v. MAJOR S.P. SHARMA 367
[M.Y. EQBAL, J.]
the respondent- officer and the non production of relevant A
records/files of these officers rendered the order of
termination as illegal and invalid?
(b) Whether the order of termination is arbitrary, capricious,
unreasonable and violative of Articles 14,16,19 and 21 of 8
the Constitution of India.
(c) xxxxxxxx
(d) Whether the order of termination passed by the first
appellant in absence of material evidence and improper C
exercise of power by the first appellant amount to fraud
being played on the respondent officers and are vitiated
in the law on account of legal malafides and legal malice?
43. All these three points are interconnected and, therefore, D
will be discussed together. Admittedly, the Division Bench while
hearing the matter called for the relevant records from the
appellant and same were produced in the Court. The Division
Bench took notice of those files and observed:-
"55. The respondents had submitted for our perusal four E
thin files without proper pagination and indexing.
56. From a reading of the files one could see that the
proposal had come from the Army Headquarters
Directorate of Military Intelligence for termination of F
services of certain officers under Section 18 of the Army
act, 1950 and that was accepted by the concerned Ministry.
The circumstances under which the Directorate Military
Intelligence formed the opinion has not been disclosed. A
single sheet file has been submitted to show that on G
17 .12.1980 there was a review of the decision taken
earlier and it appears from a note typed out without any
signature of any authority, that the very Director of the
Military Intelligence who proposed action have been a party
to the review meeting. From the records produced no
authority can come to any conclusion on the decision to H
368 SUPREME COURT REPORTS [2014] 4 S.C.R.
A be taken by the authorities concerned for terminating
service of the officers. We wanted to satisfy ourselves
about the basis on which the action was proposed by the
Directorate Military Intelligence. Apparently, the Directorate
of Military Intelligence though that they are not obliged in
B law to produce any record before the Court and the
decision of the Directorate Military Intelligence cannot be
scrutinised by this Court.
xxxxx
c xxxxx
129. It has now become absolutely necessary to Notice the
records produced by the respondents. When one the
learned addl. Solicitor General submitted that though the
D respondents had claimed privilege they had no objection
to place all the records for the perusal of this Court to
satisfy whether the respondents had acted in accordance
with law. It is a little disturbing to note that respondents
instead of producing the relevant records pertaining to the
officers involved in the cases had just produced three flaps.
E
No numbers are given. On flap contains three sheets. The
first sheet is mentioned as Index sheet. Index sheet itself
mentions that there is only one page in the file. The other
sheet contains a note which states that all the cases have
been thoroughly reviewed at Army Headquarters. The
F other sheet shows that the matter was discussed in a
meeting held in the Home Secretary's Room on
1.10.1980.
130.' The next flap is empty. The same note, as found in
G the earlier flap, is found pinned on to the flap itself. In the
third flap there are 15 sheets. The first sheet is typed as
Index Sheet. It states that "this file contains a total of 12
pages". When there are 14 sheets besides the Index
Sheet and in some sheets both sides are typed.
H Therefore, the flap contains 12 pages is not accurate.
UNION OF INDIA v. MAJOR S.P. SHARMA 369
[M.Y. EQBAL, J.]
These sheets also do not give us any relevant material to A
form an opinion about the action taken by the respondents.
Therefore, - the irres[stible conclusion is that the
respondents have suppressed the material records from
this Court and are not willing to part with or produce the
same for perusal of the Court. It cannot be pretended by B
the respondents that there are no other files available with
them except the three flaps produced before this Court, as
in the written notes submitted by the learned Addi. Solicitor
General reference is made to file No. 9, 10, 18, 1, 2 and
pages of the files are also given in the written notes, some c
files containing more than 600 pages."
44. On the basis of the aforesaid findings, the Division
Bench held that the respondent-appellant has not placed any
material justifying their action. The Court has, therefore,
concluded its findings in para 168 of the judgment which is D
reproduced hereunder:-
"168. The whole of the bundle of facts in the instant batch
of cases would appear to be a pot boiler to project the
image of the Military Intelligence Directorate, leaving us at E
the end with the cliff hanger without any iota of materials
to form an opinion about the involvement of the appellants
and the petitioners. They have chosen not to produce the
·entire records without realising their constitutional
obligation. Just to make an apology they have produced F
some flaps as if they constitute all the records in the case.
In a system where rule of law reigns supreme the
deportment of the respondents cannot at all be tolerated.
Justice Holmes of the Supreme Court of the United States
of America Speaking for the Supreme Court in Wisconsin G
vs. Illinois, 281 US 179.
"The State "must... yield to an authority that is paramount
to the State".
45. Mr. Paras Kuhad, learned Additional Solicitor General H
370 SUPREME COURT REPORTS [2014) 4 S.C.R.
A assailed the aforesaid finding as being incorrect and submitted
that all the relevant materials were produced before the Court
and after hearing was concluded, all those original papers were
returned back to the appellant. The appellant had submitted the
photocopy of all the relevant material.
B
46. During the course of hearing, Learned Additional
Solicitor General produced before us all those files and
documents which were produced before the High Court. The
Additional Solicitor General also produced the link file as
directed by us.
c
47. Mrs. Kiran Suri, learned senior counsel appearing in
one of the Civil Appeal No.2954 of 2001, submitted a note
wherein she has mentioned that on 3.1.2001 the Advocate
received back the following original file from the High Court as
D per the receipt produced by the appellant in LP.A. No.43 of
1987 and other connected matters.
(i) GCM proceedings in respect of Capt. A.K. Rana IC
23440H (Page 1-615)
E (ii) GCM Proceedings in respect of Capt R.S. Rathaur IC
23720 N (Page 1- 577)
(iii) File containing analysis of Espionage
cases in the respect of all the Appellants.
F (Page 1-13)
(iv) Brief of Samba spy Cases (Page 1-6)
(v) File showing approval of Chief of Army
Staff in respect of all cases. (Page 1-9)
G
(vi) File showing approval of Govt, of India in
respect of all the cases. (Page 1-12)
(vii) File showing note from PMO's Office
regarding review note of review at office of
H Home Secretary (Page 1-2)
UNION OF INDIA v. MAJOR S.P. SHARMA 371
[M.Y. EQBAL, J.]
48. We have minutely perused all the records including A
notings along with link file produced by the Additional Solicitor
General. On perusal and scrutiny of all those materials we are
of the view that the High Court has committed grave error of
record and there is total non-application of mind in recording
the aforesaid findings. From the record, it is evidently clear that B
the inquiry against these respondents were initiated by the
Army Headquarters, Director of Military Intelligence. The file
traveled from Chief of the Army Staff to Ministry of Defence with
the strong recommendation to terminate the services of the
respondents in the interest of security of the State as there was c
some material to show that these officers were involved in
espionage cases. The recommendation for termination of their
services up to the Defence Ministry was finally approved by the
Prime Minister who also happened to be the Defence Minister
of India at that time. The file was then placed before the
0
President of India who in exercise of the constitutional power
terminated the services of these officers.
49. The link file further reveals that confessional statements
of Captain Rana and other officers were also recorded and
strong prima facie case was found relating to the involvement E
of these officers in espionage activities and sharing information
with the Pakistani intruders.
50. On assessing the materials contained in link file and
the notings showing the suggestions and recommendations up F
to the level of defence ministry and the Prime Minister, it cannot
be held that the impugned order of termination of services have
been passed without any material available on record. There
is no dispute that order of termination passed against the Army
personnel in exercise of 'pleasure doctrine', is subject to judicial G
review, but while exercising judicial review, this court cannot
substitute its own conclusion on the basis of materials on
record. The Court exercising the power of judicial review has
certain limitations, particularly in the cases of this nature. The
safety and security of the nation is above all/everything. When
H
372 SUPREME COURT REPORTS [2014] 4 S.C.R.
A the President in exercise of its constitutional power terminates
the services of the Army officers, whose tenure of servrces are
at the pleasure of the President and such termination is based
on materials on record, then this court in exercise of powers of
judicial review should be slow in interfering with such pleasure
s of President exercising constitutional power. In a constitutional
set up, when office is held during the pleasure of the President,
it means that the officer can be removed by the Authprity on
whose pleasure he holds office without assigning any reason.
The Authority is not obliged to assign any reason or disclose
c any cause for the removal.
51. Thus, it is not a case where the decisions to terminate
the services of these officers were taken under the 'pleasure
doctrine' without any material against the officers. On the
contrary, as noticed above, charges were leveled that these
D officers were involved in certain espionage activities.
52. In the instant case, on perusal of the link file it is further
revealed that detailed investigation was conducted and all
evidence recorded were examined by the Intelligence
E Department and finally the Authority came to the finding that
retention of these officers were not expedient in the interest and
security of the State. In our view, sufficiency of ground cannot
be questioned, particularly in a case where termination order
is issued by the President under the pleasure doctrine.
F 53. A Constitution Bench of this Court in the case of the
State of Rajasthan & Ors. vs. Union of India & Ors. 1977 (3)
sec 592, while considering a constitutional power of the
President under Article 356 of the Constitution observed:-
G "81. A challenge to the exercise of power to issue a
proclamation under Article 352 of the Constitution would
be even more difficult to entertain than to one under Article
356(1) as all these considerations would then arise which
Courts take into account when the Executive, which alone
H can have all the necessary information and rneans to judge
UNION OF INDIA v. MAJOR S.P. SHARMA 373
[M.Y. EQBAL, J.]
such an issue, tells Courts that the nation is faced with a A
grave national emergency during which its very existence
or stability may be at stake. That was the principle which
governed the decision of the House of Lords in Liversidge
v. Anderson. The principle is summed up in the salutary
maxim: Sa/us Populi Supreme Lex. And it was that B
principle which this Court, deprived of the power to
examine or question any materials on which such
declarations may be based, acted in Additional District
Magistrate, Jabalpur v. Shivakant Shukla We need not
go so far as that when we have before us only a c
proclamation under Article 356(1 ).
xxxxxxxx
xxxxxxxx
D
87. Courts have consistently held issues raising questions
of mere sufficiency of grounds of executive action, such as
the one under Article 356(1) no doubt is to be non-
justiciable. The amended Article 356(5) of the Constitution
indicates that the Constitution-makers did not want such E
an issue raising a mere question of sufficiency of grounds
to be justiciable. To the same effect are the provisions
contained in Articles 352(5), 360(5). Similarly, Articles
123(4), 213(4), 239 8(4) bar the jurisdiction of courts to
examine matters which lie within the executive discretion.
Such discretion is governed by a large element of policy
F
which is not amenable to the jurisdiction of courts except
in cases of patent or indubitable malafides or excess of
power. Its exercise rests on materials which are not
examinable by courts. Indeed, it is difficult to imagine how
the grounds of action under Article 356(1) could be G
examined when Article 74(2) lays down that "the question
whether any, and if so, what advice was tendered by the
Ministers to the ·President, shall not be inquired into in any
court".
H
374 SUPREME COURT REPORTS [2014] 4 S.C.R.
A 54. In order to appreciate the application of constitutional
provisions in respect of defence services, it would be
appropriate to quote Articles 309, 310 and 311 of the
Constitution. These articles read as under:-
"Article 309:- Recruitment and conditions of service of
B
persons serving the Union or a State Subject to the
provisions of this Constitution, Acts of the appropriate
Legislature may regulate the recruitment, and conditions
of service of persons appointed, to public services and
posts in connection 'Nith the affairs of the Union or of any
c State: Provided that it shall be competent for the President
or such person as he may direct in the case of services
and posts in connection with the affairs of the Union, and
for the Governor of a State or such person as he may
direct in the case of services and posts in connection with
D the affairs of the State, t~ make rules regulating the
recruitment, and the conditions of service of persons
appointed, to such services and posts until provision in that
behalf is made by or under an Act of the appropriate
Legislature under this article, and any rules so made shall
E have effect subject to the provisions of any such Act."
Article 310:- Tenure of office of persons serving the Union
or a State
(1) Except as expressly provided by this Constitution, every
F person who is a member of a defence seriice or of a civil
service of the Union or of an all India service or holds any
post connected with defence or any civil post under the
Union, holds office during the pleasure of the President,
and every person who is a member of a civil service of a
G State or holds any civil post under a State holds office
during the pleasure of the Governor of the State.
(2) Notwithstanding that a person holding a civil post under
the Union or a State holds office during the pleasure of the
H President or, as the case may be, of the Go11ernor of the
UNION OF INDIA v. MAJOR S.P. SHARMA 375
[M.Y. EQBAL, J.]
State, any contract under which a person, not being a A
member of a defence service or of an all India service or
of a civil service of the Union or a State, is appointed under
this Constitution to hold such a post may, if the President
or the Governor as the case may be, deems it necessary
in order to secure the services of a person having special B
qualifications, provide for the payment to him of
compensation, if before the expiration of an agreed period,
that post is abolished or he is, for reasons not connected
with any misconduct on his part, required to vacate that
post." C
Article 311 :- Dismissal, removal or reduction in rank of
persons employed in civil capacities under the Union or a
State
(1) No person who is a member of a civil service of the D
Union or an all India service or a civil service of a State or
holds a civil post under the Union or a State shall be
dismissed or removed by a authority subordinate to that
by which he was appointed
E
(2) No such person as aforesaid shall be dismissed or
removed or reduced in rank except after an inquiry in which
he has been informed of the charges against him and
given a reasonable opportunity of being heard in respect
of those charges Provided that where it is proposed after
such inquiry, to impose upon him any such penalty, such
F
penalty may be imposed on the basis of the evidence
adduced during such inquiry and it shall not be necessary
to give such person any opportunity of making
representation on the penalty proposed: Provided further
that this clause shall not apply G
(a) where a person is dismissed or removed or reduced
in rank on the ground of conduct which has led to his
conviction on a criminal charge; or
H
376 SUPREME COURT REPORTS [2014] 4 S.C.R.
A (b) where the authority empowered to dismiss or remove
a person or to reduce him in rank ins satisfied that for
some reason, to be recorded by that authority in writing, it
is not reasonably practicable to hold such inquiry; or
(c) where the President or the Governor, as the case may
B
be, is satisfied that in the interest of the security of the
State, it is not expedient to hold such inquiry;
(3) If, in respect of any such person as aforesaid, a
question arises whether it is reasonably practicable to hold
c such inquiry as is referred to in clause (2), the decision
thereon of the authority empowered to dismiss or remove
such person or to reduce him in rank shall be final."
55. Article 309 empowers the appropriate legislature to
0 regulate the recruitment and conditions of services of persons
appointed in public services and posts in connection with the
affairs of the Union or the State. But Article 309" is subject to
the provisions of the Constitution. Hence, the Rules and
Regulations made relating to the conditions of service are
E subject to Articles 310 and 311 of the Constitution. The Proviso
to Article 309 confers powers upon the President in case of
services and posts in connection with the affairs of the Union
and upon the Governor of a State in connection with the
services and posts connected with the affairs of the State to
make rules regulating the recruitment and the conditions of
F services of the persons appointed. The service condition shall
be regulated according to such rules.
56. Article 310 provides that every person, who is a
member of the defence service or of a civil service of the Union
G or All India Service, or any civil or defence force shall hold such
posts during the pleasure of the President. Similarly, every
person who is a Member of the Civil Services of a State or
holds any civil post under a State, holds office during the
pleasure of the Governor of the State. It is worth to mention here
H that the opening word of Article 310 "Except as expressly
UNION OF INDIA v. MAJOR S.P. SHARMA 377
[M.Y. EQBAL,j.]
provided by this Constitution" makes it clear that a Government A
servant holds the office during the pleasure of the President or
the Governor except as expressly provided by the Constitution.
57. From bare perusal of the provisions contained in Article
311 of the Constitution, it is manifestly clear that clauses (i) and
8
(ii) of Article 311 impose restrictions upon the exercise of
power by the President or the Governor of the State of his
pleasure under Article 310 (1) of the Constitution. Article 311
makes it clear that any person who is a member of civil services
of the Union or the State or holds civil posts under the Union
or a State shall not be removed or dismissed from service by C
an authority subordinate to that by which he was appointed.
Further, clause (ii) of Article 311 mandates that such removal
or dismissal or reduction in rank of the members of the civil
services of the Union or the State shall be only after giving
reasonable opportunity of hearing in respect of the charges D
leveled against him. However, proviso to Article 311 (2) makes
it clear that this clause shall not apply inter-alia where the
President or the Governor, as the case may be, is satisfied that
in the interest of the security of the State it is not expedient to
hold such enquiry. E
58. The expression "except as otherwise provided in the
Constitution" as contained in Article 310 (1) means this Article
is subject only to the express provision made in the Constitution.
No provision in the s.tatute can curtail the provisions of Article
F
310 of the Constitution. At this juncture, I would like to refer
Sections 18 and 19 of the Army Act as under:-
"18. Tenure of s-ervice under the Act - Every person subject
to this Act shall hold office during the pleasure of the
President. G
19. Termination of service by Central Government. Subject
to the provisions of this Act and the rules and regulations
made there under the Central Government may dismiss,
or remove from the service, any person subject to this Act. H
378 SUPREME COURT REPORTS [2014] 4 S.C.R.
A 59. The aforesaid two Sections i.e. 18 and 19 are distinct
and apply in two different stages. Section 18 speaks about the
absolute discretion of the President exercising pleasure
doctrine. No provisions in the Army Act curtail, control or limit
the power contained in Article 310( 1) of the Constitution. Article
B 309 enables the legislature or executive to make any law, rule
or regulation with regard to condition of services without
impinging upon the overriding power recognized under Article
310 of the Constitution. A Constitution Bench of this Court in
State of Uttar Pradesh and others vs. Babu Ram Upadhayay,
C (1961) 2 SCR 679, held that the Constitution practically
incorporated the provisions of Sections 240 and 241 of the
Government of India Act, 1935 in Articles 309 and 310 of the
Constitution. But the Constitution has not made "the tenure of
pleasure" subject to any law made by the legislature. On the
other hand, Article 309 is expressly made subject to the
D provisions of Article 310 which provides for pleasure doctrine.
Hence, it can safely be concluded that the Army Act cannot in
any way override or stand higher than Constitutional provisions
contained in Article 309 and consequently no provision of the
Army Act could cut down the pleasure tenure in Article 310 of
E the Constitution. In another Constitution Bench Judgment of this
Court in Moti Ram Deka case (1964) 5 SCR, 683, their
Lordships observed that Article 309 cannot impair or affect the
pleasure of the President conferred by Article 310. There is no
doubt, Article 309 has to be read subject to Articles 310 and
F 311 and Article 310 has to be read subject to Article 311.
60. In the case of B.P. Singhal (supra), a Constitution
Bench of this Court has elaborately discussed the application
and object of the doctrine of pleasure and considered most of
G the earlier decisions rendered by this Court. Some of the
paragraphs are worth to be quoted herein below:-
"22. There is a distinction between the doctrine of
pleasure as it existed in a feudal set-up and the doctrine
of pleasure in a democracy governed by the rule of law. In
H
UNION OF !NOIA v. MAJOR S.P. SHARMA 379
[M.Y. EQBAL, J.]
a nineteenth century feudal set-up unfettered power and A
discretion of the Crown was not an alien concept. However,
in a democracy governed by rule of law, where
arbitrariness in any form is eschewed, no Government or
authority has the right to do what it pleases. The doctrine
of pleasure does not mean a licence to act arbitrarily, B
capriciously or whimsically. It is presumed that discretionary
powers conferred in absolute and unfettered terms on any
public authority will necessarily and obviously be exercised
reasonably and for the public good.
33. The doctrine of pleasure as originally envisaged in
c
England was a prerogative power which was unfettered.
It meant that the holder of an office under pleasure could
be removed at any time, without notice, without assigning
cause, and without there being a need for any cause. But
where the rule of law prevails, there is nothing like D
unfettered discretion or unaccountable action. The degree
of need for reason may vary. The degree of scrutiny during
judicial review may vary. But the need for reason exists.
As a result when the Constitution of India provides that
some offices will be held during the pleasure of the E
President, without any express limitations or restrictions,
it should however necessarily be read as being subject to
the "fundamentals of constitutionalism". Therefore in a
constitutional set-up, when an office is held during the
pleasure of any authority, and if no limitations or restrictions F
are placed on the "at pleasure" doctrine, it means that the
holder of the office can be removed by the authority at
whose pleasure he holds office, at any time, without notice
and without assigning any cause.
G
34. The doctrine of pleasure, however, is not a licence to
act with unfettered discretion to act arbitrarily, whimsically,
or capriciously. It does not dispense with the need for a
cause for withdrawal of the pleasure. In other words, "at
pleasure" doctrine enables the removal of a person holding H
380 SUPREME COURT REPORTS [2014] 4 S.C.R.
A office at the pleasure of an authority, summarily, without any
obligation to give any notice or hearing to the person
removed, and without any obligation to assign any reasons
or disclose any cause for the removal, or withdrawal of
pleasure. The withdrawal of pleasure cannot be at the
B sweet will, whim and fancy of the authority, but can only be
for valid reasons."
61. In fact the 'pleasure doctrine' is a Constitutional
necessity, for the reasons that the difficulty in dismissing those
servants whose continuance in office is detrimental to the State
C would, in case necessity arises to prove some offence to the
satisfaction of the court, be such as to seriously impede the
working of public service.
62. There is no dispute with regard to the legal proposition
D that illegality, irrationality and procedural non-compliance are
grounds on which judicial review is permissible. But the
question is as to the ambit of judicial review. This court in Civil
Appeal filed by the respondents challenging the order of
termination passed under Section 18 of the Army Act observed
E that the order of termination can be challenged only on the
ground of malafide. It was further observed that it is for the
person alleging malafide to make out a prima facie case. For
better appreciation, the order passed by this Court is quoted
herein below.
F "1. Special leave granted.
2. Heard both sides. According to us, all that the
impugned judgment holds is that an order passed under
Section 18 of the Army Act can be challenged on the
G ground of malafides. This statement of law is
unexceptional. However, it is for the person who challenges
it on the ground of malafides, to make out a prima facie
case in that behalf. It is only if he discharges the said
burden, that the Government is called upon to show that it
H is not passed in the malafide exercise of its powers. While
UNION OF INDIA v. MAJOR S.P. SHARMA 381
[M.Y. EQBAL, J.]
doing so, the Government is not precluded from claiming A
the privilege in respect of the material which may be in its
possession and on the basis of which the order is passed.
The Government may also choose to show the material only
to the court. With regard to the pleadings in respect of the
challenge to the order on the ground of malafides, no B
particular formula can be laid down. The pleadings will
depend upon the facts of each case.
3. The appellants are permitted to withdraw from the
appeal-memo, pp. 221 to 232 which according to the
learned Solicitor General have been annexed to the memo
c
inadvertently.
4. The appeals are disposed of accordingly with no order
as to costs."
D
63. The Full Bench of the Delhi High Court while answering
the reference has observed in paragraphs 37 and 38 which is
quoted hereunder:-
"37. Undoubtedly, the power under Section 18 cannot be
ordinarily invoked for dealing with cases of misconduct and D
the other provisions in the Army .Act dealing with the
various kinds of misconduct have to be invoked for dealing
with such cases. This power under Section 18 must be
used sparingly only when it is expedient to deal with such
cases under the other provisions of the Army Act. In view E
of the sensitive nature of cases involving security of State
that may come up in the case of armed forces it cannot
be said that in no case of misconduct section 18 can be
invoked. There may be cases where security of State is
involved and it may not be expedient to continue with the F
inquiry provided under the Army Act for dealing with
misconduct. It appears that it is specifically for this reason
that section 18 has been incorporated in the Army Act
despite the fact that Article 310 of the Constitution already
provided that tenure of an Army personnel would be at the G
382 SUPREME COURT REPORTS [2014] 4 S.C.R.
A pleasure of the President. This is a power given to the
Supreme Commander of the Armed Forces, i.e. the
President of India to be invoked in such cases where
inquiry in other form is not advisable and is inexpedient.
This power is similar to second proviso (a), (b) & (c) of
B Article 311 (2) which provides for dispensing with the
inquiry in certain cases even in the case of civil service.
The safeguard provided for a government servant by
clause (2) of Article 311 is taken away when second
proviso to Article 311 (2) becomes applicable. The
Supreme Court in Tulsi Ram Patel's case (supra)
c observed that "the second proviso has been mentioned in
the Constitution as a matter of public policy and in public
interest for public good." The Supreme Court further
observed that much as it may seem harsh and oppressive
to a government servant, the court must repel the
D
temptation to be carried away by feelings of
commiseration and sympathy in such cases. Therefore,
even if an order under Section 18 for removing a defense
personnel for misconduct is passed if it is found that there
were sufficient reasons for resorting to Section 18, the
E same would not be open to challenge on merits. The
Supreme Court in Chief of Army Staff & Anr. v. Major
Dharam Pal Kukrety, 1985 CriLJ 913, has held that even
after Court Martial proceedings had been concluded, the
finding of the general court martial having not been
F confirmed by the Chief of Army Staff, further retention of
the Army personnel being undesirable, the Chief of Army
Staff could resort to Rule 14, indicating thereby that even
after resorting to court martial proceedings if it is found
inexpedient to continue with the Court Martial proceedings
G it was open to resort to proceedings under Section 19 of
the Army Act. The Supreme Court observed:
"The crucial question, therefore, is whether the
Central Government or the Chief of the Army Staff
can have resort to Rule 14 of the Army Rules.
H
UNION OF INDIA v. MAJOR S.P. SHARMA 383
[M.Y. EQBAL, J.]
Though it is open to the Central Government or the A
Chief of the Army Staff to have recourse to that rule
in the first instance without directing trial by a court-
ma rtial of the concerned officer, there is no
provision in the Army Act or in Rule 14 or any of
the other rules of the Army Rules which prohibits the B
Central Government or the Chief of the Army Staff
from resorting in such a case to Rule 14. Can it,
however, be said that in such a case a trial by a
court-martial is inexpedient or impracticable? The
Shorter Oxford English Dictionary, Third Edition, c
defines the word 'inexpedient' as meaning "not
expedient; disadvantageous in the circumstances,
inadvisable, impolite". The same dictionary defines
'expedient' inter alias as meaning "advantageous;
fit, proper, or suitable to the circumstances of the 0
case". Webster's Third New International Dictionary
also defines the term 'expedient' inter alias as
meaning 'characterized by suitability, practicality,
and efficiency in achieving a particular end; fit,
proper or advantageous under the circumstances." E
38. That being the position even after resorting to court
martial proceedings if it is found inexpedient to continue
with the same it is always open to the respondent to resort
to either section 18 or 19 of the Army Act."
F
. 64. Indisputably, defence personnel fall under the category
where President has absolute pleasure to discontinue the
services. Further in our considered opinion as far as security
is concerned, the safeguard available to civil servants under
Article 311 is not available to defence personnel as judicial G
review is very limited. In cases where continuance of Army
officers in service is not practicable for security purposes and
there is loss of confidence and potential risk to the security
issue then such officers can be removed under the pleasure
doctrine. As a matter of fact, Section 18 of the Army Act is in H
384 SUPREME COURT REPORTS [2014] 4 S.C.R.
A consonance with the constitutional powers conferred on the
President empowering the President to terminate the services
on the basis of material brought to his notice. In such cases,
the Army officers are not entitled to claim an opportunity of
hearing. In our considered opinion the pleasure doctrine can
B be invoked by the President at any stage of enquiry on being
satisfied that continuance of any officer is not in the interest of
and security of the State. It is therefore not a camouflage as
urged by the respondents.
65. The next question that arises for consideration is as
C to whether the order of dismissal of the earlier writ petitions and
confirmation of the same by this court amounts to "Doctrine of
Merger" and operates as res judicata against the present
appeals. As discussed above, the services of the present
respondents along with other permanent commissioned officers
D of the Indian Army were terminated, since they were found
suspected to be involved in espionage activities. Aggrieved by
the termination order, the present respondents, except Major
R.K. Midha and Major N.R. Ajwani, filed writ petitions being
C.W.P. Nos. 418, 419, 421, 424 and 425 of 1980 before the
E Delhi High Court. These respondents challenged the said
termination order as being illegal and malafide. The High Court
vide order dated 21.4.1980 dismissed the writ petitions. The
Order dated 21.4.1980 reads as under:-
"Dismissal from service is under Section 18 of the Army
F
act which is complimentary to Article 31 O of the
Constitution. This means that the Officer held the tenure
during the pleasure of the President. It has been
contended that it was not in accordance with the provisions
of the Act and that due procedure for dismissal for
G
misconduct has not been followed. The impugned order
does not say whether the dismissal is for misconduct or
otherwise. It only sets out the pleasure doctrine. In this view
of the matter, no case made out for interference.
Dismissed."
H
UNION OF INDIA v. MAJOR S.P. SHARMA 385
[M.Y. EOBAL, J.]
66. Respondents then preferred special leave petitions A
against the aforesaid order dated 21.4.1980 being SLP Nos.
7225 and 7233 of 1980. A three-Judge Bench of this Court
dismissed the special leave petition by order dated 1.9.1980.
In the year 1982, the show cause notices dated 10.5.1982
were issued to the offieers whose services were terminated B
informing them that their services were not considered
satisfactory by the Pen:.ionary Authority and, therefore, why not
5% of the gratuity or pension be deducted. On receipt of the
said show cause notices, eight of the officers, whose services
were terminated initiated the second round of litigation by filing c
writ petitions being C.W.P Nos. 1643-1646 of 1982, 1777 of
1982, 804of1982, 1666of1982 praying not only to quash the
show cause notices, but also to quash the order of termination
of their services. All those writ petitions were finally heard and
came to be dismissed by the Delhi High Court vide judgment 0
dated 22.3.1985. Aggrieved by the said order, the respondents
filed Letters Patent Appeal before the Delhi High Court. The
Division Bench of the High Court after hearing the appeal
formulated questions of law and referred the same to the Full
Bench by order dated 15.5.1991. The question of law framed
by the Division Bench was "whether the order of termination E
passed by and in the name of President under Section 18 of
the Army Act read with Article 310 of the Cc;mstitution invoking
doctrine of pleasure of the President be challenged on the
ground that it is camouflage and as such is violative of
principles of natural justice and the fundamental rights F
guaranteed under Article 14 of the Constitution?".
67. From the above, it is clear that the Union of India has
been consistently contesting these petitions and this Court has
found substance in the argument of the appellants that the High G
Court while delivering t~e judgment dated 21.12.2000
overlooked·this important legal aspect of finality coupled with
the doctrine of res judicata. In our considered opinion, this
aspect cannot be ignored and the issue of fact cannot be re-
opened in the instant case as well as has been done under the H
386 SUPREME COURT REPORTS [2014] 4 S.C.R.
A impugned judgment by relying on certain material which the High
Court described to have been fraudulently withheld from the
courts. In our opinion, fraud is not a term or ornament nor can
it be presumed to exist on the basis of a mere inference on
some alleged material that is stated to have been discovered
B later on. The discovery of a reinvestigated fact could have been
a ground of review in the same proceedings, but the same
cannot be in our opinion made the basis for re-opening the
issue through a fresh round of litigation. A fresh writ petition or
Letters Patent Appeal which is in continuation of a writ petition
c cannot be filed collaterally to set aside the judgment of the same
High Court rendered in earlier round of litigation upholding the
termination order. In our view, the High Court has committed a
manifest error by not lawfully defining the scope of the fresh
round of litigation on the principles of res judicata and doctrine
of finality. To establish fraud, it is the material available which
0
may lead to the conclusion that the failure to produce the\
material was deliberate or suppressed or even otherwise
occasioned a failure of justice. This also, can be attempted if
legally permissible only in the said proceedings and not in a
collateral challenge raised after the matter has been finally
E decided in the first round of litigation. It is to be noticed that
the judgment which had become final in 1980 also included writ
petition no.418 of 1980 filed by the respondent S.P. Sharma.
Once, this Court had put a seal to the said litigation vide
judgment dated 1.9.1980 then a second round of litigation by
F the same respondents including S.P. Sharma in writ petition
no. 1643 of 1982 was misplaced.
68. The very genesis of an i.dentical challenge relating to
the same proceedings of termination on the pretext of a 5%
G cut in terminal benefits .was impermissible apart from the
attraction of the principle of merger. This aspect of finality,
therefore, cannot be disturbed through a collateral challenge.
69. In Naresh Shridhar Mirajkar vs. State of Maharashtra
H & Anr. AIR 1967 SC 1, this Court by a majority decision laid
down the law that when a Judge deals with the matter brought
UNION OF INDIA v. MAJOR S.P. SHARMA 387
[M.Y. EQBAL, J.]
before him for his adjudication, he first decides the questions A
of fact on which the parties are at issue, and then applies the
relevant law to the said facts. Whether the findings of fact
recorded by the Judge are right or wrong, and whether the
conclusion of law drawn by him suffers from any infirmity, can
be considered and decided if the party aggrieved by the B
decision of the Judge takes up the matter before the appellate
court.
70. A decision rendered by a competent court cannot be
challenged in collateral proceedings for the reason that if it is C
permitted to do so there would be "confusion and chaos and
the finality of proceedings would cease to have any meaning".
71. In the case of Mohd. Aslam vs. Union of India, AIR
1996 SC 1611, a writ petition under Article 32 of the
Constitution was filed seeking reconsideration of the judgment D
rendered by this Court on the ground that the said judgment is
incorrect. Rejecting the prayer, this Court held that Article 32
of the Constitution is not available to assail the correctness of
the decision on merit or to claim its reconsideration.
E
72. In the case of Babu Singh Bains etc. versus Union of
India and others etc., AIR 1997 SC 116, this Court reiterated
the settled principal of law that once an order passed on merit
by this Court exercising the power under Article 136 of the
Constitution has become final no writ petition under Article 32
F
of the Constitution on the self-same issue is maintainable. The
principle of constructive res judicata stands fast in his way in
his way to raise the same contention once over.
73. In Khoday Distilleries Limited & Anr. vs. The Registrar
General, Supreme Court of India, (1996) 3 SCC 114, this G
Court re-iterated the view as under:
"In a case like the present, where in substance the
challenge is to the correctness of a decision on merits after
it has become final, there can be no question of invoking
H
388 SUPREME COURT REPORTS [2014] 4 S.C.R.
A Article 32 of the Constitution to claim reconsideration of the
decision on the basis of its effect in accordance with law..
Frequent resort to the decision in Antulay (AIR 1988 SC
1531) in such situations is wholly misconceived and impels
us to emphasis this fact."
B
74. In M. Nagabhushana vs. State of Kamataka & Ors.,
AIR 2011 SC 1113, this Court held that doctrine of res-judicata
was not a technical doctrine but a fundamental principle which
sustains the rule of law in ensuring finality in litigation. The main
object of the doctrine is to promote a fair administration of
C justice and to prevent abuse of process of the court on the
issues which have become final between the parties. The
doctrine was based on two age old principles, namely, 'interest
reipub/icae ut sit finis litium' which means that it is in the
interest of the State that there should be an end to litigation and
D the other principle is 'nemo debet bis vexari si constat curiae
quod sit pro una et eadem causa' meaning thereby that no one
ought to be vexed twice in a litigation if it appears to the Court
that it is for one and the same cause.
E 75. Thus, the principle of finality of litigation is based on a
sound firm principle of public policy. In the absence of such a
principle great oppression might result under the colour and
pretence of law inasmuch as there will be no end to litigation.
The doctrine of res-judicata has been evolved to prevent such
F an anarchy.
76. In a country governed by the rule of law, finality of
judgment is absolutely imperative and great sanctity is attached
to the finality of the judgment and it is not permissible for the
parties to reopen the concluded judgments of the court as it
G would not only tantamount to merely an abuse of the process
of the court but would have far reaching adverse affect on the
administration of justice. It would also nullify the doctrine of stare
decisis a well established valuable principle of precedent which
cannot be departed from unless there are compelling
H circumstances to do so. The judgments of the court and
UNION OF INDIA v. MAJOR S.P. SHARMA 389
[M.Y. EQBAL, J.]
. particularly the Apex Court of a country cannot and should not A
be unsettled lightly.
77. Precedent keeps the law predictable and the law
declared by this Court, being the law of the land, is binding on
all courts/tribunals and authorities in India in view of Article 141 B
of the Constitution. The judicial system "only works if someone
is allowed to have the last word" and the last word so spoken
is accepted and religiously followed. The doctrine of stare
decisis promotes a certainty and consistency in judicial
decisions and this helps in the development of the law. Besides C
providing guidelines for individuals as to what would be the
consequences if he chooses the legal action, the doctrine
promotes confidence of the people in the system of the judicial
administration. Even otherwise it is an imperative necessity to
avoid uncertainty, confusion. Judicial propriety and decorum
demand that the law laid down by the highest Court of the land 0
must be given effect to.
78. In Rupa Ashok Hurra v. Ashok Hurra & Anr., AIR 2002
SC 1771, this Court dealt with the issue and held that
reconsideration of a judgment of this Court which has attained E
finality is not normally permissible. A decision upon a question
of law rendered by this Court was conclusive and would bind
the court in subsequent cases. The court cannot sit in appeal
against its own judgment.
79. In Magan/al Chhaganlal (P) Ltd. v. Municipal F
Corporation of Greater Bombay, AIR 1974 SC 2009, this Court
held as under:
"At the same time, it has to be borne in mind that certainty
and continuity are essential ingredients of the rule of law. G
Certainty in law would be co_nsiderably eroded and suffer
a serious setback if the highest court of the land readily
overrules the view expressed by it in earlier cases, even
though that view has held the field for a number of years.
In quite a number of cas-es which come up before this H
390 SUPREME COURT REPORTS [2014] 4 S.C.R.
A Court, two views are possible, and simply because the
Court considers that the view not taken by the Court in the
earlier case was a better view of the matter would not
justify' the overruling of the view. The law laid down by this
Court is binding upon all courts in the country under Article
B 141 of the Constitution, and numerous cases all over the
country are decided in accordance with the view taken by
this Court. Many people arrange their affairs and large
number of transactions also take place on the faith of the
correctness of the view taken by this Court. It would create
c uncertainty, instability and confusion if the law propounded
by this Court on the basis of which numerous cases have
been decided and many transactions have taken place is
held to be not the correct law. "
Thus, in view of above, it can be held that doctrine of finality
D has to be applied in a strict legal sense.
80. While dealing with the issue this court in Ambika
Prasad Mishra v. State of U.P. & Anr., AIR 1980 SC 1762,
held as under:
E
"6. It is wise to remember that fatal flaws silenced by
earlier rulings cannot survive after death because
a decision does not lose its authority 'merely
because it was badly argued, inadequately
considered and fallaciously reasoned'".
F
81. The view has been expressed by a three-Judge Bench
of this Court in these very proceedings while dismissing the
special leave petitions of Subhash Juneja and Harish Lal Singh
vide order dated 23.4.2003. This court applied the doctrine of
G finality of judgment and res-judicata and refused to reopen
these very proceedings.
82. Mrs. Kiran Suri, learned counsel appearing for the
respondent, put heavy reliance on a decision of this Court in
H the case of Mathura Prasad Bajoo Jaiswal & Ors. v. Dossibai
UNION OF INDIA v. MAJOR S.P. SHARMA 391
[M.Y EQBAL, J.]
N.B. Jeejeebhoy, (1970)1 SCC 613, for the proposition that A
question relating to the jurisdiction of a court cannot be deemed
to have been finally determined by an erroneous decision of
the court. Further by an erroneous decision if the court resumes
jurisdiction which it does not possess under the Statute, the
question cannot operate as res judicata between the same B
parties whether the cause of action in the subsequent litigation
is same or otherwise. In our opinion, the aforesaid decision is
· of no help to the respondent for the simple reason that the facts
and the law involved in the instant case and the earlier round
of litigation are the same. In para 5 of the aforesaid judgment, c
this Court has laid down the principle, which reads as under:-
"5. But the doctrine of res judicata belongs to the domain
of procedure: it cannot be exalted to the status of a
legislative direction between the parties so as to determine
the question relating to the interpretation of enactment D
affecting the jurisdiction of a Court finally between them,
even though no question of fact or mixed question of law
and fact and relating to the right in dispute between the
parties has been determined thereby. A decision of a
competent Court on a matter in issue may be res judicata E
in another proceeding between the same parties: the
"matter in issue" may be an issue of fact, an issue of law,
or one of mixed law and fact. An issue of fact or an issue
of mixed law and fact decided by a competent Court is
finally determined between the parties and cannot be re- F
opened between them in another proceeding. The
previous decision on a matter in issue alone is res
judicata: the reasons for the decision are not res judicata.
A matter in issue between the parties is the right claimed
by one party and denied by the other, and the claim of right G
from its very nature depends upon proof of facts and
application of the relevant law thereto. A pure question of
law unrelated to facts which give rise to a right, cannot be
deemed to be a matter in issue. When it is said that a
previous decision is res ~cata, it is meant that the right H
392 SUPREME COURT REPORTS [2014] 4 S.C.R.
A claimed has been adjudicated upon and cannot again be
placed in contest between the same parties. A previous
decision of a competent Court on facts which are the
foundation of the right and the relevant law applicable to
the determination of the transaction which is the source of
B the right is res judicata. A previous decision on a matter
in issue is a composite decision: the decision on law
cannot be dissociated from the decision on facts on which
the right is founded. A decision on an issue of law will be
as res judicata in a subsequent proceeding between the
c same parties, if the cause of action of the subsequent
proceeding be the same as in the previous proceeding,
but not when the cause of action is different, nor when the
law has since the earlier decision been altered by a
competent authority, nor when the decision relates to the
jurisdiction of the Court to try the earlier proceeding, nor
D
when the earlier decision declares valid a transaction
which is prohibited by law.
83. In the case arising out of these very proceedings
reported in Union of India & Ors. v. Ranbir Singh Rathaur &
E Ors., (2006) 11 SCC 696, this Court held:
· (a) That review of the earlier orders passed by this court
was "impermissible": approach of the High Court of
reopening the case was "erroneous"; the issue of
F maintainability of the petitions was of paramount
importance:
(b) The finding recorded by the High Court that the
entire record was not produced by the Union of
India was not factually correct;
G
(c) To say that "justice stood at the higher pedestal"
then the finality of litigation was not an answer
enabling the court to reopen a finally decided case;
(d) Persons behind the false implication were not
H
impleaded as parties; and
UNION OF INDIA v. MAJOR S.P. SHARMA 393
[M.Y. EQBAL, J.]
(e) Newspaper reports/statement made by any officer A
could not be considered as evidence.
84. Violation of Fundamental Rights guaranteed under the
Constitution have to be protected, but at the same time, it is
the duty of the court to ensure that the decisions rendered by
8
the court are not overturned frequently, that too, when challenged
collaterally as that was directly affecting the basic structure of
the Constitution incorporating the power of judicial review of this
Court. There is no doubt that this Court has an extensive power
to correct an error or to review its decision but that cannot be
done at the cost of doctrine of finality. An issue of law can be C
overruled later on, but a question of fact or, as in the present
case, the dispute with regard to the termination of services
cannot be reopened once it has been finally sealed in
proceedings inter-se between the parties up to this Court way
back in 1980. D
85. The term 'dismissal' in the original order was
substituted by the term 'termination' issuing the corrigendum to
ratify a mistake committed while issuing the order. In fact, the
competent authority had taken a decision only to terminate, and E
therefore it was found necessary to issue the corrigendum.
However, in view of such substitution of word 'dismissal' by the
term 'termination', does not tilt the balance in favour of the
respondents. More so, as pointed out by Mr. Paras Kuhad,
learned ASG that th'e proposed 5% deduction had been F
withdrawn, and therefore the issue did not survive.
86. Analysing entire facts of the case and the material
produced in Court and upon an exhaustive consideration of the
matter, we are of the definite opinion that the power of pleasure
exercised by the President in terminating the services of the G
respondents does not suffer from any illegality, bias or malafide
or based on any other extraneous ground, and the same cannot
be challenged on the ground that it is a camouflage. As
discussed above, the onus lay on the respondent-officers who
alleged malafides. No credible evidence or material produced H
394 SUPREME COURT REPORTS [2014] 4 S.C.R.
~-
A before the Court impels us to come to the conclusion that the
order of termination is baseless or malafide.
87. For the reasons aforesaid, these appeals are allowed
and the judgment and order passed by the Delhi High Court is
set aside. Ordered accordingly: No costs.
8
D.G. Appeals allowed.
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