V. Sukumaran vs State Of Kerala . on 26 August, 2020
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Supreme Court of India
V. Sukumaran vs State Of Kerala . on 26 August, 2020
Author: Sanjay Kishan Kaul
Bench: Sanjay Kishan Kaul, Ajay Rastogi
REPORTABLE IN THE SUPREME COURT OF INDIA CIVIL APPELLATE JURISDICTION CIVIL APPEAL NO. 3984 OF 2010 V. SUKUMARAN …Appellant Versus STATE OF KERALA & ANR. …Respondents JUDGMENT
SANJAY KISHAN KAUL, J.
1. Pension is succour for post-retirement period. It is not a bounty
payable at will, but a social welfare measure as a post-retirement
entitlement to maintain the dignity of the employee. The appellant has
been claiming his entitlement for the last almost 13 years but
Signature Not Verified
unsuccessfully, despite having worked with Government departments in
Digitally signed by
ASHA SUNDRIYAL
Date: 2020.08.26
19:24:06 IST
Reason:
various capacities for about 32 years.
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The Facts:
2. The controversy emanates from the appellant having worked in
these different capacities with two different departments from time to
time, albeit continuously. The appellant joined respondent No. 2,
Department of Fisheries of the State Government of Kerala as a Casual
Labour Roll (for short ‘CLR’) worker on 7.7.1976 in a then pilot project
on Pearl Culture, at Vizhinjam, Thiruvananthapuram. He worked upto
29.11.1983 rendering 7 years, 4 months and 23 days of service as a CLR
worker whereupon the District Officer, Kerala Public Service
Commission (for short ‘KPSC’) advised him to join the Revenue
Department, Kannur District as Lower Division Clerk (for short ‘LDC’)
on his participation in a direct recruitment process. He accordingly
reported for duty on 30.11.1983. On having rendered a few years of
service, the appellant sought an inter-departmental transfer from the
Revenue Department back to the Fisheries Department and returned to
Thiruvananthapuram and joined on 18.9.1987 on probation of two years
with the service being subsequently regularised on 18.9.1989. The
appellant earned his promotion as Upper Division Clerk (Higher Grade)
(for short ‘UDC’) from which post he retired on attaining the age of
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superannuation on 31.12.2008. The total service rendered by the
appellant was about 25 years, but excluding the service as CLR.
Developments:
3. In order to ameliorate the financial remuneration for CLR and
Seasonal Labour Roll (for short ‘SLR’) posts, the State Government
passed a slew of Government Orders (for short ‘G.O.’) from time to time
and that is what gave hope and cause of action to the appellant as he
sought the benefits under the same.
4. Some CLR workers were aggrieved by their non-regularisation of
service, despite a G.O. dated 4.11.1989, which had provided for their
absorption as SLR workers if they had rendered 240 days a year of
service in the Fisheries Department prior to 16.9.1985. On these persons
approaching the High Court, the State Government was asked to address
the issue and on such examination G.O. dated 20.8.1993 was issued
creating 29 SLR posts in the Fisheries Department for absorption of the
existing CLR workers. A G.O. was also issued on 31.3.2001
subsequently noting that these 29 SLR posts were created for such of the
CLR workers who had completed 500 days of work before 1.4.1987, and
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simultaneously 27 employees in the Fisheries Department, who had
worked for the past 20 years and had also completed 8 years as SLR
workers were ordered to be permanently absorbed with consequent
pensionary and provident fund benefits. Subsequently, the service and
wage conditions of the SLR workers of the Fisheries Department were
brought at par with those in the Agriculture and Animal Husbandry
Department with effect from 31.3.2001 in pursuance of the G.O. dated
13.7.2006. It was, however, also stipulated that no new appointments
would be made in the Fisheries Department in the CLR/SLR/HR
categories.
5. Another significant development was the issuance of G.O. dated
21.8.2006 to the effect that the Pension (Gratuity) Rules of the SLR
Workers/Permanent Labourers of Fisheries Department (hereinafter
referred to as the ‘Pension Rules’) were framed to grant pension to these
workers and bringing them at par with those working in the Agriculture
and Animal Husbandry Department. The Pension Rules were brought
with retrospective effect from 31.3.2001. These Pension Rules were to
apply to all those SLR workers/Permanent Labourers of Departmental
Hatcheries/Farms in the Fisheries Department, who were still in service
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as well as who had not completed 60 years of age as on that date.
Significantly, Rule 4(f)(iii) of the Pension Rules, inter alia, defined that
200 days or more work in a calendar year during the period of service
spent as casual labourer in the departmental farms prior to permanency
would be treated as one year qualifying for pension. The legal
significance was that service rendered as a casual labourer of a certain
number of days was equated with one year of permanent service for
purposes of pension qualification.
The Cause of the Appellant:
6. In view of the aforesaid developments, the appellant made a
representation dated 27.11.2006 to the Assistant Director of the Fisheries
Department for passing orders to treat his period of CLR service of more
than 7 years as qualifying service for pension. In effect what the
appellant claimed was that he should be treated at par with the other CLR
service workers having worked in the Department for the requisite period
of time. A plea of parity was, thus, raised.
7. The appellant, in this representation also made a request to be
provided with service details of other such workers, and obtained
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requisite information which showed that the appellant’s name featured at
the 2nd place out of 6 persons in order of starting of the casual service on
the aforementioned pilot project. Thus, he was very senior. This
representation received favourable consideration by respondent No. 2,
Department of Fisheries with a recommendation being made by the
Director. In the meantime, another G.O. dated 19.1.2007 was also issued
clarifying that the casual service period of farm labourers would be
counted for calculating qualifying service for pension and requiring all
pension claims to be settled accordingly with prospective effect.
However, the State Government/respondent No. 1 finally did not accept
the recommendation of the Fisheries Department and rejected the
representation of the appellant vide letter dated 16.5.2007 as according to
the State Government the benefit could not be extended to the appellant
since he was appointed by the KPSC and had not been absorbed in the
Fisheries Department from the CLR service. If one may say, the other
CLR employees who went through the process of regularisation, thus,
gained the benefit which was sought to be denied to the appellant who
came through a regular employment process through the KPSC.
8. The aforesaid, thus, gave rise to the cause for the appellant to file
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writ petition, being WP(C) No. 22931/2007, against the respondents
pertaining to the quantum of pensionary benefits he was to receive at the
time of retirement with the prayer that his service as a CLR worker from
7.7.1976 to 29.11.1983 be counted as 8 years of1 qualifying service for
pension.. The claim was predicated on the following grounds:
a. 29 SLR posts were created to regularise those CLR workers
who had completed 500 days of work, and had the appellant
continued in service of the Fisheries Department, he would
have found a place in one of those 29 posts having worked
for 1678 days.
b. The G.O. dated 21.8.2006 provided for 200 or more days of
work in a calendar year during the period of service as CLR
worker prior to the permanency, calculated as equivalent to
one year regular service qualifying for pension and, thus, the
appellant was entitled to 8 years of qualifying service of
pension on account of his service as CLR worker.
c. The details sought and disclosed vis-a-vis the other casual
workers vide letter dated 4.12.2006 showed that the
appellant was second senior most person and the first person
1 Sir, appellant has calculated qualifying service to be 8 years calculating on the
basis of the 200 days a year criteria per Rule 4(f)(iii) of the Pension Rules.
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had got his CLR service regularised as SLR worker with
pension being granted to him accordingly.
d. The rejection by the State Government of the
recommendation of the Fisheries Department was wrongful.
e. The appellant would be entitled to his maximum
pensionable service only if the CLR service was regularised
as qualifying service on parity with his co-workers and had
he continued to work in the Fisheries Department, he would
have undoubtedly been regularised.
9. Appellant also placed reliance on Rule 13, Part III of the Kerala
Service Rules (for short ‘Service Rules’), which come to his aid, and read
as under:
“13. Work establishment employees absorbed in regular
establishment will be allowed to count 50 per cent of the work
establishment service for purposes of pension.
xxxx xxxx xxxx xxxx xxxx” The Respondent’s Stand:
10. The writ petition was sought to be resisted on the ground that the
benefit of G.O. dated 21.8.2006 was available only to those CLR workers
who were regularised as SLR workers and none of the G.O.s would
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govern the appellant. The benefit of Rule 4(f)(iii) of the Pension Ruleswas pleaded to be not extendable to the appellant and all these would
have applied had he continued to work as a CLR worker for the Fisheries
Department. The appellant was, however, appointed by the KPSC and
not absorbed in the department from the CLR service and for this the
rules of pension were entirely different as under Part II of the Service
Rules.
11. We may note the stand of the appellant in respect of the aforesaid
was that insofar as 29 SLR posts were concerned, only 27 workers in the
Fisheries Department were absorbed and, thus, he would have been easily
absorbed against the two remaining posts, more so on account of his
seniority.
The View of the High Court:
12. The learned Single Judge dismissed the writ petition by the order
dated 16.1.2009 primarily on the ground that the appointment of the
appellant to the Revenue Department was in pursuance of his selection
by the KPSC and, thus, he could not compare himself with the CLR
workers, who had obtained regularisation as SLR workers and were
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governed by various G.O.s. The appellant had not been absorbed in the
Fisheries Department from the category of CLR workers. There was no
G.O. or provision under the relevant rules for counting the period of
service as CLR worker of persons like the appellant who secured
appointment through the KPSC as an LDC. No declaration had been
made under Rule 11 of the Service Rules in Part III and in the absence of
such declaration the appellant could not take the benefit of the G.O.s.
The relevant portion of the Rule reads as under:
“11. Notwithstanding the provisions of Rule 10, the Government
may(1) declare that any specified kind of service rendered shall
qualify for pension; and(2) in individual cases, and subject to such conditions as they
may think fit to impose in each case, allow service rendered by an
employee to count for pension.
xxxx xxxx xxxx xxxx xxxx”
13. The appellant being naturally aggrieved preferred an appeal, being
W.A. No. 892/2009, which endeavour was also unsuccessful as the said
appeal was dismissed by the impugned order dated 3.6.2009. Once
again, the basis was the same as the reasoning of the learned Single Judge
that CLR service was not provided as qualifying service for the purposes
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of grant of pension in cases like the appellant, who joined the RevenueDepartment in pursuance of a recruitment process of the KPSC and was
only transferred to the Fisheries Department by an inter-departmental
transfer at his own request.
Arguments:
14. The arguments before us have been in the same compass as what
has been specified aforesaid. The appellant pleads that he must be
entitled for service rendered by him of 1678 days as CLR worker of and
that the true intention of the G.O. dated 20.8.1993 should be given effect
to, being a decision taken in the interest of the workers. The grounds set
out hereinabove for the claim of the appellant in para 8 were, once again,
repeated before us.
15. Learned counsel for the appellant also sought to emphasise that
pension is a right vested in a Government servant and is not a bounty
payable at the will and pleasure of the Government as also that pension is
a social welfare measure and a post retirement entitlement; something
with which we began our order. (; D.S. Nakara and Ors. v. Union of
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India2 U.P. Raghavendra Acharya & Ors. v. State of Karnataka &
Ors.3; Deokinandan Prasad v. The State of Bihar & Ors.4).
16. On the other hand, it was contended on behalf of the respondents,
once again, that the appellant could not be treated at par with those CLR
workers, who were absorbed as SLR workers vide G.O. dated 20.8.1993
as the concept of regularisation of long and continuous service giving
benefit to casual employees could not be equated with a casual employee
getting a permanent job through KPSC. The appellant had been enjoying
the benefits as a direct recruit to a higher post since 1983, which were not
available to his other original co-workers till 2001 when they were
regularised by the G.O. dated 31.3.2001. Had the inter-departmental
transfer to the Fisheries Department not have taken place, the appellant in
any case would not have been in a position to lay a claim.
Conclusion:
17. We have given our thoughtful consideration to the controversy
before us, albeit in a limited contour. Leave was granted in this matter on
2 (1983) 1 SCC 305
3 (2006) 9 SCC 630
4 1971(2) SCC 330
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23.4.2010 but the matter has seen its fate of hearing only after a decade
despite hearing being expedited when leave was granted!
18. We are unable to accept the rationale and reasoning of the learned
Single Judge and the Division Bench of the High Court in the given facts
and circumstances of the case.
19. We begin by, once again, emphasising that the pensionary
provisions must be given a liberal construction as a social welfare
measure. This does not imply that something can be given contrary to
rules, but the very basis for grant of such pension must be kept in mind,
i.e., to facilitate a retired Government employee to live with dignity in his
winter of life and, thus, such benefit should not be unreasonably denied
to an employee, more so on technicalities.
20. While looking into the facts and circumstances of the case, there is
no dispute about the time period spent by the appellant as a CLR worker
and his being at serial No. 2 for grant of pensionary benefits in the list of
details of CLR workers had he continued as one. The appellant was able
to advance his career by going through a process of direct recruitment by
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the KPSC successfully. It is not a case of some unreasonable or improper
benefit being extended to the appellant but that he competed against
others and was successfully recruited.
21. It is also not in dispute that he was transferred to the Fisheries
Department albeit at his own request and demitted office from there after
earning promotion. To say that the appellant would be denied the benefit
of the period spent as CLR worker for his pensionary benefit would be to
treat his case as inferior one to the case of other CLR workers, who never
went through a system of recruitment for regularisation but were
regularised in the Fisheries Department to provide better working
conditions and monetary benefits to the employees. Can it really be said
that a regularly recruited person like the appellant should not get the
benefit which the other people who were CLR workers would get, having
spent more than 7 years in that capacity? The answer, in our view, is in
the negative, as it would amount to whittling away long years of service
as a CLR worker of 1678 days (7 years 4 months and 23 days).
22. Had the respondents not issued the G.O.s, no doubt the appellant
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would have no claim. The claim of the appellant arises from the G.O.s,
which are beneficial efforts for the CLR workers to improve the
conditions of working along with monetary benefits. The appellant did
work for the aforesaid long period of time as a CLR worker and should,
thus, be entitled to the same on parity vis-à-vis other CLR workers. The
appellant was at serial No.2 in the aforementioned list and would have
been so absorbed when 29 posts were created. In fact, only 27 posts out
of these were filled in. It is thus not even a case where no post existed or
that it would affect anybody else, or that the Government would be
compelled to create a post for the appellant. In fact, in terms of the G.O.
dated 21.8.2006 an equalisation has been given of 200 days of work as a
CLR worker to one year’s regular service for the purposes of pension.
While one would commend such effort by the State Government, it
would be very unreasonable to deny this to the appellant in view of the
aforesaid facts.
23. What also weighs with us is that the appellant is being deprived of
the maximum pensionable service which would be permissible to him if
his period of CLR service is recognised as qualifying service and there is
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no reason to deny the same to him when other CLR workers have got this
benefit at the time of their absorption and subsequent regularisation as
SLR workers and who would have, by virtue of joining at a later point
of time, rendered less service. We also feel that Rule 13 of the Service
Rules would possibly come to the aid of the rationale we seek to adopt as
on absorption in the establishment, such persons are given the benefit of
counting 50 per cent of their earlier work service prior to absorption for
the purposes of pension.
24. We are, thus, of the view that for all the aforesaid reasons, the
appellant is entitled to succeed in the present appeal and the impugned
orders are liable to be set aside. We also find that the rejection of the
recommendation of the Fisheries Department, respondent No. 2, by
respondent No. 1 was consequently improper and unsustainable. The
benefit of the service rendered as a CLR worker would, thus, be liable to
be counted for determining the pensionary benefits of the appellant at par
with other CLR workers and the pension be accordingly calculated. The
arrears of pension be remitted to the appellant within a maximum period
of eight (8) weeks from today with admissible interest as applicable to
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outstanding pension amounts.
25. The appeal is accordingly allowed with costs throughout.
………………………………J.
[Sanjay Kishan Kaul]
………………………………J.
[Ajay Rastogi)
………………………………J.
[Aniruddha Bose)
New Delhi.
August 26, 2020.
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