{"id":24575,"date":"1994-03-16T00:00:00","date_gmt":"1994-03-15T18:30:00","guid":{"rendered":"https:\/\/www.legalindia.com\/judgments\/state-of-w-b-vs-hari-narayan-bhowal-on-16-march-1994"},"modified":"2015-10-12T17:02:56","modified_gmt":"2015-10-12T11:32:56","slug":"state-of-w-b-vs-hari-narayan-bhowal-on-16-march-1994","status":"publish","type":"post","link":"https:\/\/www.legalindia.com\/judgments\/state-of-w-b-vs-hari-narayan-bhowal-on-16-march-1994","title":{"rendered":"State Of W.B vs Hari Narayan Bhowal on 16 March, 1994"},"content":{"rendered":"
Supreme Court of India<\/div>\n
State Of W.B vs Hari Narayan Bhowal on 16 March, 1994<\/div>\n
Equivalent citations: 1994 SCC (4)\t78, \t JT 1994 (2)\t610<\/div>\n
Author: S N.P.<\/div>\n
Bench: Singh N.P. (J)<\/div>\n
           PETITIONER:\nSTATE OF W.B.\n\n\tVs.\n\nRESPONDENT:\nHARI NARAYAN BHOWAL\n\nDATE OF JUDGMENT16\/03\/1994\n\nBENCH:\nSINGH N.P. (J)\nBENCH:\nSINGH N.P. (J)\nSAWANT, P.B.\n\nCITATION:\n 1994 SCC  (4)\t78\t  JT 1994 (2)\t610\n 1994 SCALE  (2)263\n\n\nACT:\n\n\n\nHEADNOTE:\n\n\n\nJUDGMENT:\n<\/pre>\n
The Judgment of the Court was delivered by
\nN.P. SINGH, J.- Leave granted.\n<\/p>\n
2.   This  appeal has been filed on behalf of the  State  of
\nWest  Bengal,  against an order passed by  the\tHigh  Court,
\ndirecting  the State Government, to give the same pay  scale
\nand  other benefits, which are payable to the Constables  of
\nthe  West  Bengal  Police Force,  to  the  writ\t petitioner-
\nrespondents (hereinafter referred to as the  ‘respondents’),
\nwho  are the members of the West Bengal\t National  Volunteer
\nForce.\n<\/p>\n
3.   The respondents were employed as ‘Agragamies’ otherwise
\ncalled\t Volunteers  attached  to   Biswakarama\t  Battalion.
\nAccording  to  respondents, as they have been  appointed  in
\naccordance  with the provisions of the West Bengal  National
\nVolunteer  Force Act, 1949 (hereinafter referred to  as\t the
\n‘Act’)\tand  as\t they have been\t performing  the  duties  of
\nConstables  while maintaining law and order, they should  be
\ntreated on a par with the police Constables of West  Bengal;
\nthey  are  entitled  to\t the same scale\t of  pay  and  other
\nbenefits  which\t are  payable to such  Constables.   It\t was
\npointed\t out on their behalf, that the revised scale of\t pay
\nintroduced  by the Government, for the National\t Volunteers,
\nwas  highly discriminatory in nature and different from\t the
\nmembers\t of  the  West\tBengal\tPolice\tForce  although\t the
\nrespondents not only perform the duties of Constables  while
\nmaintaining  law and order, but perform even the  duties  of
\nbrick-laying,  carpentry,  painting,  plastering,  flooring,
\npumping and electrical wiring.\tThey have to construct roads
\nand  highways  as  well,  apart\t from  guarding\t the   vital
\ninstallations.\n<\/p>\n
 4. A learned Judge on the principle of “equal pay for equal
\nwork”, directed the State Government to consider the case of
\nthe  respondents, in the light of the judgment of  the\tsame
\ncourt  in the case of Madan Mohan Sen v. State of W.B. 1  in
\nwhich the High Court had directed to pay the Agragamies, who
\nwere  the members of the West Bengal Civil Emergency  Force,
\nthe  scale  of pay and benefits, which were payable  to\t the
\nfiremen\t in  the  West Bengal Fire  Service.   The  Division
\nBench,\taffirmed  the direction given by the  Single  Judge,
\nsaying\tthat  as  the Agragamies have  been  performing\t and
\ndischarging the duties of the Constables, they were entitled
\nto  the\t same scale of pay and other allowances,  which\t are
\npayable\t to the Constables of the West Bengal Police  Force;
\nthe   denial  of  said\tscale  and  benefits   amounted\t  to
\ndiscrimination\twithin\tthe  meaning of Article\t 14  of\t the
\nConstitution.\n<\/p>\n
5.   On behalf of the appellant-State, it was pointed out by
\na  reference, to the comparative data which had\t been  filed
\nbefore\tthe High Court regarding the Agragamies in the\tWest
\nBengal National Volunteer Force and the
\n1  F.M.A.T. No. 1841 of 1986, decided on Nov. 21, 1990\t(Cal
\nHC)
\n81<\/span>
\nConstables in the West Bengal Police Force, that  Agragamies
\nare  recruited\tfrom  amongst the  trained  members  of\t the
\nNational Volunteer Force, or from amongst the ex-servicemen,
\nwhereas\t the  Constables in Police Force  are  recruited  on
\nselection,   by\t  process  of\tdirect\t recruitment.\t The
\nqualification prescribed for Agragamies is Class VI  passed,
\nwhereas\t for  Constables  the qualification  is\t Class\tVIII
\npassed.\t  There is also difference in the  minimum  physical
\nstandard required for the two.\tThe duty to be performed  by
\nthe  Agragamies are (1) to aid the police force to meet\t law
\nand  order situation, (2) to attend emergencies on call,  in
\ntimes  of Dock Strike, Corporation Strike and similar  other
\nsituation of unrest, (3) to attend emergency duties in times
\nof  natural calamities e.g. flood, storms, earthquake  etc.,
\nand   (4)  to  guard  vital  installations  in\t Union\/State
\nUndertakings,\te.g.,  DPL,  DCL,  RCFA,  WBSEB\t and   Water
\nTreatment  Plants,  etc. whereas the duties  of\t the  Police
\nConstables, are maintenance of law and order and  prevention
\nof  crime.  It further appears that Agragamies are Class  IV
\nemployees in the State Government Service, while  Constables
\nare Class III employees.\n<\/p>\n
6.   In the Act “Force” has been defined to mean West Bengal
\nNational  Volunteer  Force.  “Volunteer”  has  been  defined
\nunder Section 2(g) to mean a person enrolled as a member  of
\nthe  West  Bengal National Volunteer Force or  any  unit  or
\ncorps  of the Force established, constituted or\t formed,  as
\nthe case may be under the proviso to Section 3 or Section 7.
\nSection\t 3  says  that the State Government  may  raise\t and
\nmaintain  “a  volunteer force to be called the\tWest  Bengal
\nNational Volunteer Force” and for that purpose enrol persons
\nas  volunteers from Calcutta and elsewhere in  West  Bengal.
\nThe functions of a volunteer have been prescribed in Section
\n4,  saying  that when called upon, he shall  discharge\tsuch
\nfunctions  in  relation to the protection  of  persons,\t the
\nsecurity of property and preservation of the public peace in
\nany area within West Bengal and such other functions as\t may
\nbe  assigned  to him by or under the said  Act.\t  Section  7
\nvests  power in the State Government to direct that  one  or
\nmore  corps or units of the force be constituted  or  formed
\nfor  any  particular region within West Bengal\tor  for\t any
\nspecified purpose.  Section 8 says :\n<\/p>\n
\t      “8.  (1)\tAny citizen of India or\t any  person
\n\t      having a permanent domicile in West Bengal who
\n\t      may  offer himself for enrolment in the  Force
\n\t      and  who satisfies the  prescribed  conditions
\n\t      may be eligible for enrolment therein by\tsuch
\n\t      authority, in such manner and for such  period
\n\t      not exceeding five years as may be prescribed.\n<\/p><\/blockquote>\n
\t      (2)   Every   volunteer\tshall\treceive\t   a
\n\t      certificate  of appointment in the  prescribed
\n\t      form  and such certificate shall be issued  by
\n\t      such  authority  as  may\tbe  prescribed\t and
\n\t      thereupon he shall have the powers, privileges
\n\t      and protection conferred, and shall  discharge
\n\t      the duties imposed, on a volunteer by or under
\n\t      this Act.\n<\/p><\/blockquote>\n
\t      (3)   Every volunteer enrolled under this\t Act
\n\t      shall undergo such preliminary and  periodical
\n\t      training as may be prescribed.\n<\/p><\/blockquote>\n
\t      82<\/span><\/p>\n
\t      (4)   Every  person  enrolled as\ta  volunteer
\n\t      under this Act shall be entitled to receive  a
\n\t      certificate  of  discharge in  the  prescribed
\n\t      form on the expiration of the period for which
\n\t      he was enrolled and any such person may, prior
\n\t      to   the\t expiration  of\t that\tperiod,\t  be
\n\t      discharged  by such authority subject to\tsuch
\n\t      conditions as may be prescribed, and shall  be
\n\t      so  discharged  on the recommendation  of\t the
\n\t      Advisory Committee in this behalf.
\n\t      (5)   The prescribed authority may, subject to
\n\t      such conditions as may be prescribed\n<\/p><\/blockquote>\n
\t      (a)   suspend,  discharge, dismiss  or  remove
\n\t      any  volunteer from his office  and  thereupon
\n\t      the certificate referred to in sub-section (2)
\n\t      shall cease to have effect, or\n<\/p><\/blockquote>\n
\t      (b)   disband any unit constituted under\tthis
\n\t      Act and thereupon every volunteer of such unit
\n\t      shall vacate office.”\n<\/p><\/blockquote>\n
Section\t 12 provides that a volunteer, when called upon\t for
\nduty under subsection (al) or sub-section (1) of Section  10
\nto aid the police force, such volunteer shall work under the
\norders\tof or be under the control of such officers  of\t the
\npolice force as may be prescribed.\n<\/p>\n
7.   On\t plain reading of the different provisions  referred
\nto  above,  it appears that West Bengal\t National  Volunteer
\nForce is a force of volunteers.\t When called upon for  duty,
\nthe volunteer has to discharge such functions in relation to
\nprotection   of\t persons,  the\tsecurity  of  property\t and
\npreservation  of  the public peace in any area\twithin\tWest
\nBengal\tand such other functions as may be assigned to\thim.
\nAny  citizen  of  India or any\tperson\thaving\ta  permanent
\ndomicile  in West Bengal may offer himself for enrolment  in
\nthe force and if he satisfies the prescribed conditions,  he
\nmay be enrolled by the prescribed authority for such  period
\nnot  exceeding 5 years.\t Every person enrolled as  volunteer
\nunder the said Act, on expiration of the period for which he
\nhad  been  enrolled or even prior to the expiration  of\t the
\nsaid  period be discharged in accordance with the  procedure
\nprescribed  under sub-section (4) of Section 8. It  is\ttrue
\nthat  such volunteer force has to perform when called  upon,
\nthe  duties  of the police force while maintaining  law\t and
\norder.\t But  according\t to us, the  whole  concept  of\t the
\nNational  Volunteer  Force, is different from  that  of\t the
\npolice force.  In respect of the volunteers, it can be\tsaid
\nthat it is a standby force, not only for law and order,\t but
\nfor  different\temergencies,  to aid and  help\tthe  regular
\npolice force or members of the other services.\n<\/p>\n
8.   It\t appears, the Pay Commission examined the scales  of
\npay  of the volunteers of National Volunteer Force  and\t the
\nConstables of the West Bengal Police Force.  On the basis of
\nthe  relevant material different scales of pay for them\t was
\nrecommended.  The High Court having found that the nature of
\nwork  of  the  respondents  was more or\t less  that  of\t the
\nconstables  of the police force, especially, when  they\t are
\ncalled\tupon to maintain law and order, held that there\t was
\nno  justification  to  deny the same scale of  pay,  to\t the
\nrespondents on the principle of “equal pay for equal work”.\n<\/p>\n
83<\/span><\/p>\n
9.   In\t public services, nature of work in two services  or
\nin  the\t same  service, the nature of the work\tof  the\t two
\ngroups may be more or less same.  But merely on that  ground
\nthey are not entitled to the same scale of pay.\t It is\twell
\nknown that scales of pay are fixed by expert bodies like the
\nPay Commissions, which consist of persons having specialized
\nknowledge of the subject.  Such Commissions while fixing the
\nscales of pay or revising the same, have to go in depth, not
\nonly into the nature of work by members of the same  service
\nand  members  of different services but also  various  other
\nfactors\t before\t the scales of pay are fixed.\tOne  of\t the
\nprimary\t concerns of such Pay Commissions is to\t remove\t any
\nanomaly\t and to see that members of different  services\t get
\nscales of pay and other emoluments not only according to the
\nnature\t of   work  but\t also\taccording   to\t educational
\nqualifications, responsibilities of the posts and experience
\netc.  As such, before any direction is issued by the  court,
\nthe claimants have to establish that there was no reasonable
\nbasis  to  treat them separately in matters  of\t payment  of
\nwages or salary.\n<\/p>\n
10.  This  Court  in the case of Delhi Veterinary  Assn.  v.
\nUnion  of India2<\/a> said that in addition to the  principle  of
\n“equal\tpay  for  equal\t work”, the  pay  structure  of\t the
\nemployees of the Government should reflect many other social
\nvalues.\t It was said :\n<\/p>\n
\t      “The   degree  of\t skill,\t strain\t  of   work,
\n\t      experience   involved,   training\t   required,
\n\t      responsibility undertaken, mental and physical
\n\t      requirements,  disagreeableness of  the  task,
\n\t      hazard attendant on work and fatigue  involved
\n\t      are,  according to the Third  Pay\t Commission,
\n\t      some  of the relevant factors which should  be
\n\t      taken into consideration in fixing pay scales.
\n\t      The method of recruitment, the level at  which
\n\t      the   initial  recruitment  is  made  in\t the
\n\t      hierarchy\t  of  service  or   cadre,   minimum
\n\t      educational   and\t  technical   qualifications
\n\t      prescribed   for\tthe  post,  the\t nature\t  of
\n\t      dealings with the public, avenues of promotion
\n\t      available\t  and\thorizontal   and    vertical
\n\t      relativity with other jobs in the same service
\n\t      or outside are also relevant factors.”\n<\/p><\/blockquote>\n
In  the\t case  of State of U.P. v. J.P.\t Chaurasia3  it\t was
\npointed out that whether two posts are equal or should carry
\nthe  equal  pay, depends on several factors.   It  does\t not
\ndepend just upon either the nature of work or the volume  of
\nwork  done.  Primarily it requires among others,  evaluation
\nof duties and responsibilities of the respective posts.\t The
\nquantity  of  work may be the same but the  quality  may  be
\ndifferent.   That  cannot  be  determined  by  relying\tupon
\naverments  in affidavits of interested parties.\t It must  be
\ndetermined  by expert bodies like Pay Commission, who  would
\nbe  the\t best  judges,\tto  evaluate  the  nature  of  duty,
\nresponsibility and all relevant factors.  The same view\t was
\nreiterated in the case of State of M.P. v. Pramod  Bhartiya4
\nby a three-Judge Bench of this Court.  Recently, in the case
\nof
\n2 (1984) 3 SCC 1: 1984 SCC(L & S) 329: AIR 1984 SC 1221
\n3  (1989) 1 SCC 121: 1989 SCC (L & S) 71: (1988) 8 ATC\t929:
\nAIR 1989 SC 19
\n4 (1993) 1 SCC 539: 1993 SCC (L & S) 221: (1993) 23 ATC 657
\n84<\/span>
\nShyam Babu Verma v. Union of India5<\/a> a claim for equal pay by
\na  group  of  Pharmacists  was\trejected  saying  that\t the
\nclassification\tmade by a body of experts after\t full  study
\nand analysis of the work, should not be disturbed except for
\nstrong\treasons which indicate that the classification\tmade
\nwas unreasonable.\n<\/p>\n
11.  It\t need not be impressed that the principle of  “equal
\npay  for equal work” can be enforced only after the  persons
\nclaiming satisfy the court that not only the nature of\twork
\nis  identical but in all other respects they belong  to\t the
\nsame  class and there is no apparent reason to treat  equals
\nas  unequals.  Unless a very clear case is made out and\t the
\ncourt  is  satisfied that the scale provided to a  group  of
\npersons\t on  the basis of the material\tproduced  before  it
\namounts\t  to   discrimination  without\t there\t being\t any
\njustification,\tthe  court should not take upon\t itself\t the
\nresponsibility of fixation of scales of pay, especially when
\nthe  different\tscales\tof  pay\t have  been  fixed  by\t Pay
\nCommission  or\tPay Revision Committees, having\t persons  as
\nmembers who can be held to be experts in the field and after
\nexamining  all\tthe  relevant  material.   It  need  not  be
\nemphasised  that in the process undertaken by the court,  an
\nanomaly\t in different services may be introduced,  of  which
\nthe  court may not be conscious, in the absence of  all\t the
\nrelevant  materials  being before it.\tTill  the  claimants
\nsatisfy\t on  material  produced, that  they  have  not\tbeen
\ntreated\t as  equals  within the parameters  of\tArticle\t 14,
\ncourts should be reluctant to issue any writ or direction to
\ntreat  them equal, particularly when a body of\texperts\t has
\nfound them not to be equal.\n<\/p>\n
12.  So\t far  as the present case is concerned,\t as  already
\nmentioned  above,  the\tHigh Court  placed  reliance  on  an
\nearlier judgment of the same court directing that Agragamies
\nof West Bengal Civil Emergency Force be paid the same  scale
\nof pay, which was payable to the Firemen of the Fire Service
\nDepartment.   That  earlier judgment of the High  Court\t has
\nbeen  reversed by this Court (State of W.B. v.\tMadan  Mohan
\nSen6).\tThis Court<\/a> while dismissing the writ application  of
\nAgragamies of West Bengal Civil Emergency Force has  pointed
\nout  that  merely because the  academic\t qualifications\t and
\nphysical  requirements\tof  both are  similar  or  that\t the
\nAgragamies  are\t also given certain  fire-fighting  training
\nalong  with  other  training, it cannot be  said  that\tthey
\nperform\t similar duties, functions and\tresponsibilities  as
\nthe Firemen.\n<\/p>\n
13.  The  same\tis the position here.  On  the\tmaterial  on
\nrecord, it is difficult to hold that the respondents who had
\nbeen  enrolled as volunteers under the West Bengal  National
\nVolunteer  Force  Act, belong to the  class  of\t Constables,
\nunder  the  West  Bengal  Police Force\tand  to\t treat\tthem
\nseparately  in matters of fixation of scale of pay,  amounts
\nto  violating Article 14 of the Constitution.  According  to
\nus,  they form two different classes in public service.\t  In
\nthis  background,  the High Court was in error\tin  treating
\nthem  on a par with the Constables of the West Bengal  State
\nPolice Force.\n<\/p>\n
5 ((1994) 2 SCC 52 1: JT (1994) 1 SC 574
\n6    1993 Supp (3) SCC 243: 1993 SCC (L & S) 1063: (1993) 25
\nATC 586
\n86<\/span><\/p>\n","protected":false},"excerpt":{"rendered":"
Supreme Court of India State Of W.B vs Hari Narayan Bhowal on 16 March, 1994 Equivalent citations: 1994 SCC (4) 78, JT 1994 (2) 610 Author: S N.P. Bench: Singh N.P. (J) PETITIONER: STATE OF W.B. Vs. RESPONDENT: HARI NARAYAN BHOWAL DATE OF JUDGMENT16\/03\/1994 BENCH: SINGH N.P. (J) BENCH: SINGH N.P. (J) SAWANT, P.B. CITATION: […]<\/p>\n","protected":false},"author":1,"featured_media":0,"comment_status":"open","ping_status":"open","sticky":false,"template":"","format":"standard","meta":{"_lmt_disableupdate":"","_lmt_disable":"","_jetpack_memberships_contains_paid_content":false,"footnotes":""},"categories":[30],"tags":[],"class_list":["post-24575","post","type-post","status-publish","format-standard","hentry","category-supreme-court-of-india"],"yoast_head":"\nState Of W.B vs Hari Narayan Bhowal on 16 March, 1994 - Free Judgements of Supreme Court & High Court | Legal India<\/title>\n<meta name=\"robots\" content=\"index, follow, max-snippet:-1, max-image-preview:large, max-video-preview:-1\" \/>\n<link rel=\"canonical\" href=\"https:\/\/www.legalindia.com\/judgments\/state-of-w-b-vs-hari-narayan-bhowal-on-16-march-1994\" \/>\n<meta property=\"og:locale\" content=\"en_US\" \/>\n<meta property=\"og:type\" content=\"article\" \/>\n<meta property=\"og:title\" content=\"State Of W.B vs Hari Narayan Bhowal on 16 March, 1994 - 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