2004 Supreme(MP) 255

2005(2) JLJ 117
(SUPREME COURT)
V.N. Khare, C.J.I., S.B. Sinha and S.H. Kapadia, JJ.
M.P. Vidyut Karamchari Sangh v. M.P. Electricity Board
Civil Appeal No. 2510 of 2002; against the judgment of M.P. High Court passed in L.P.A. No. 34 of 2001; Decided on 18.3.2004.

Headnote:(1) Electricity (Supply) Act, 1948--S. 79(c) -- Constitution of India -- Sch. VII List II--law relating to industrial relations and resolution of labour dispute--State Government has exclusive power to enact--it will prevail over regulations framed by Electricity Board exercising powers under S. 79(c) of the Act.

       Whether an agreement despite expiry would prevail over a regulation made under section 79(c) of the Electricity (Supply) Act, 1948 (for short ‘the Act‘) as regards the age of superannuation of an employee of the respondent Board, is the primal question involved in this appeal. [Para 1

       On or about 19.10.1963, the Board purported to have adopted fundamental rules, supplementary rules and other service conditions as in force in Madhya Pradesh Civil Services (Temporary Service) Rules, Civil Services (Classification, Control and Appeal) Rules. The said rules, however, had no application as regards work-charged employees. On or about 16.9.1976, by a notification issued under section 79(c) of the Act, the Board adopted Madhya Pradesh Shasakiya Sevak (Adhivarshiki Ayu) Samshodhan Adhiniyam, 1972, relating to the retirement age of Government employees under FR 56(3) prescribing 58 years as the age of superannuation. It is not in dispute that the parties hereto entered into an agreement on or about 10.6.1996 whereby and whereunder the age of superannuation of the employees was made at par with the employees of the Central Government. [Para 2.2

       The Board thereafter issued a notification dated 22.5.1998 adopting the notification issued by the Central Government, dated 13.5.1998, as a result whereof the age of retirement of the officers and employees of the respondent Board was enhanced to 60 years. The said order came into force with effect from 13.5.1998. By reason of the impugned notification dated 26.12.2000, the Board reduced the age of superannuation of its employees, except class IV employees, to 58 years. Questioning the said notification, the appellant herein filed a writ petition before the High Court of judicature of Madhya Pradesh at Jabalpur which was marked as Writ Petition No. 7255 of 2000. The said writ petition was dismissed by a learned Single Judge of the High Court where against the appellant herein preferred a letters patent appeal marked as Letters Patent Appeal No. 34 of 2001. By reason of the impugned judgment dated 11.9.2001, the Division Bench dismissed the said appeal. [Para 2.3

       Whether the regulations made under section 79(c) of the Act would prevail over the Standing Order framed under the 1961 Act ? [Para 12

       Held: Section 79(c) of the Electricity (Supply) Act provides for an incidental power upon the Board. The same would, therefore, not prevail over the specific legislative competence granted to the State to regulate the conditions of service between an industrial undertaking and its employees nor thereby the State Government would be denuded of its legislative power relating to regulation of the industrial relations. [Para 20

       Keeping in view the fact that the State Government has the exclusive power to enact a law regulating industrial relations and resolution of labour disputes, ... the same shall prevail over the regulations framed by the Board in exercise of its power under section 79(c). (1987) 4 SCC 691 relied on. [Para 24

       (2) Industrial Employment (Standing Orders) Act, 1961 (M.P.)--Ss. 2 and 2(2) -- applicability of the Act -- provisions under the Act -- are applicable to undertaking of Board as it was in existence when Act came into force -- application of the Act -- can only be excluded by notification of State Government under S. 2(2). [Para 25

       (3) Industrial Employment (Standing Orders) Act, 1961 (M.P.)--S. 2(2) -- Electricity (Supply) Act, 1948 -- S. 79(c) -- Board adopted Fundamental and Supplementary Rules for employees of its undertaking -- they will be deemed to be regulations framed by Board under S. 79(c) of the 1948 Act -- as no notification under S. 2(2) of 1961 Act was issued -- regulations are not applicable.

       Whether regulation dated 19.10.1963 issued by the Board adopting Fundamental and Supplementary Rules for its employees except those in work-charged establishments, and published in Gazette on 26.12.2000, the application of the 1961 Act by reason of section 2(2) thereof stand excluded? [Para 12

       Held: For excluding the operation of the 1961 Act, it is imperative that an appropriate notification in terms of section 2(2) of the 1961 Act is issued.

       The Board adopted Fundamental and Supplementary Rules which per se were not applicable to the employees of their undertaking. They were adopted by the Board. The provisions of Fundamental and Supplementary Rules to the extent it was made applicable, having regard to the provisions contained in section 79(c) would thus, be deemed to be the regulations governing the terms and conditions of the employees of the Board. The requisite notification under section 2(2) of the 1961 Act was, thus, required to be issued by the State Government.

       It is not in dispute that the State Government has not issued any notification in terms of section 2(2) of the 1961 Act and in that view of the matter, the provisions thereof shall apply to the employees •of the State. The 1961 Act is a special law whereas the regulations framed by the Board under section 79(c) are general provisions. The maxim ‘generalia specialibus non derogant‘ would, thus, be applicable in this case. (2003) 7 SCC 110, (2003) 7 SCC 589, (1978) 4 SCC 16 and (1984) 1 SCC 147 relied on. [Paras 25 to 28

       (4) Electricity (Supply) Act, 1948--Ss. 79(c) and 15 -- M.P. Industrial Employment (Standing Orders) Rules, 1963--R. 14A -- M.P. Industrial Relations Act, 1960 -- Ss. 33 and 99 -- Board agreeing to accept rules of service framed by Central Govemment -- agreement executed -- such agreement not enactment -- age of retirement of employees notified as 58 years is valid.

       Whether the respondent Board acted illegally and without jurisdiction in issuing the notification dated 26.12.2000 reducing the age of Class III employees to 58 years‘. [Para 12

       Held : Rule 14A of the 1963 Rules prescribes the age of superannuation as 58 years. It can be enhanced up to the age of 60 years if the services of the person are necessary in the interest of the undertaking but he shall not be retained in service after the age of 60 years unless in terms of the proviso, there exists any agreement/settlement or award to the contrary. The enhanced age of superannuation of members of the appellant Association was, therefore, subject to any law that may operate in the field. The respondent Board, as noticed hereinbefore, issued the notification dated 22.5.1998 whereby and whereunder it had given a seal of approval to the aforementioned agreement, which was to continue to operate in view of the agreement, until the same is replaced by another valid notification. The Board has issued such a notification on 26.12.2000 in exercise of its statutory power under section 79(c) of "the Act". [Para 36

       Section 79(c) empowers the Board to make regulations inter alia as regard the duties of officers and other employees of the Board, and their salaries, allowances and other conditions of service. The Board, therefore, was empowered to make regulations which are not inconsistent with the provisions of the Act and the Rules providing for the duties of officers, their salaries, allowances and other conditions of service.

       The power of the Board, therefore, to lay down the conditions of service of its employees either in terms of regulation or otherwise would be subject only to any valid law to the contrary operating in the field. Agreement within the meaning of proviso appended to rule 14A is not a law and, thus, the regulations made by the Board shall prevail thereover. [Paras 37 & 38

       (5) Master and Servant-- employees of undertaking -- alteration in the age of retirement -- is a matter of executive policy -- same is permissible for sufficient and cogent reasons. 1985(2) SCR 579, (1997) 10 SCC 741, 1975 Supp. SCR 328 and (2003) 6 SCC 545 relied on. [Para 40

       (6) Constitution of India -- Sch. VII Lists I, II & III and Art. 254 -- Parliament and States may make legislation within their competence -- more than one list may be covered in such legislation -- Art. 254 attracts only when legislation covering same ground both by Centre and Province operate in field -- recourse can be taken only in case of direct conflict. AIR 1959 SC 648, AIR 1979 SC 898, IT 2004(1) SC 375 and IT 2004(1) SC 563 relied on. [Paras 21 & 23

       ¼1½ fo|qr ¼çnk;½ vf/kfu;e] 1948& &/kkjk 79¼x½& &Hkkjr dk lafo/kku& &lkroha vuqlwph 2& &vkS|ksfxd laca/kksa vkSj Je fooknksa ds fujkdj.k ls lacaf/kr fof/k& &jkT ljdkj dks vf/kfu;fer djus dh vuU; ‘kfDr gS&og fo|qr eaMy }kjk vf/kfu;e dh /kkjk 79¼x½ ds v/khu ‘kfDr ç;qDr dj fojfpr fd, x, fofu;eksa ij vfHkHkkoh gksxhA

       D;k çR;FkhZ eaMy ds deZpkjh dh vf/kokf"kZdh vk;q ds laca/k esa djkj] volku ds ckotwn] fo|qr ¼çnk;½ vf/kfu;e] 1948 ¼la{ksi ds fy, ^vf/kfu;e* dh /kkjk 79¼x½ ds v/khu cuk, x, fofu;e ij vfHkHkkoh gksxk] ;g bl vihy esa varoZfyr çeq[k ç‘u gSA ¼iSjk 1½

       19-10-1963 dks ;k mlds vklikl] eaMy }kjk e/; çns‘k flfoy lsok ¼vLFkk;h lsok½ fu;e] flfoy lsok ¼oxhZdj.k] fu;a=.k rFkk vihy½ fu;e esa ;Fkk ço`Ùk ewy fu;e] iwjd fu;e vkSj vU; lsok ‘krs± vaxhdkj dh tkuk rkRif;Zr gSA rFkkfi] mDr fu;e fu/kkZfjr deZ deZpkfj;ksa dk ykxw ugha gksrs FksA 16-9-1976 dks ;k mlds vklikl] vf/kfu;e dh /kkjk 79¼x½ ds v/khu tkjh vf/klwpuk }kjk eaMy us ewy fu;e 56¼3½ ds v/khu ljdkjh deZpkfj;ksa dh lsokfuo`fÙk dh vk;q ds laca/k esa] vf/kokf"kZdh vk;q 58 o"kZ fofgr djus okyh e/;çns‘k ‘kkldh; lsod ¼vf/kokf"kZdh vk;q½ la‘kks/ku vf/kfu;e] 1972 vaxhdkj dhA ;g fookfnr ugha gS fd bl vihy ds i{kdkjksa us 10-6-1996 dks ;k mlds vklikl djkj fd;k ftlds }kjk vkSj ftlds v/khu deZpkfj;ksa dh vf/kokf"kZdh vk;q] dsanzh; ljdkj ds deZpkfj;ksa ds leku dj nh xbZA ¼iSjk 2-2½

       rRi‘pkr eaMy us dsanzh; ljdkj }kjk tkjh vf/klwpuk fnukad 13-5-1998 vaxhdkj djrs gq, vf/klwpuk fnukad 22-5-1998 tkjh fd ftlds ifj.kkeLo:i çR;FkhZ eaMy ds vf/kdkfj;ksa vkSj deZpkfj;ksa dh lsokfuo`fÙk dh vk;q c<+kdj 60 o"kZ dj nh xbZA mDr vkns‘k 13-5-1998 ls ço`Ùk gqvkA vkf{kIr vf/klwpuk fnukad 26-12-2000 }kjk eaMy us prqFkZ Js.kh deZpkfj;ksa dks NksM+ dj vius deZpkfj;ksa dh vf/kokf"kZdh vk;q ?kVk dj 58 o"kZ dj nhA mDr vf/klwpuk dks ç‘uxr djrs gq, vihykFkhZ us tcyiqj fLFkr e/; çns‘k mPp U;k;ky; ds le{k fjV ;kfpdk Qkby dh tks fjV ;kfpdk Ø- 7255 lu~ 2000 fpfâr dh xbZA mDr fjV ;kfpdk mPp U;k;ky; ds fo}ku ,dy U;k;k/kh‘k }kjk [kkfjt dj nh xbZ ftlds fo#) vihykFkhZ us ySVlZ isVsaV vihy Ø- 34 lu~ 2001 ds :i esa fpfâr ySVlZ isVsaV vihy çLrqr dhA vkf{kIr fu.kZ; fnukad 11-9-2001 }kjk [kaM U;k;ihB us mDr vihy [kkfjt dj nhA ¼iSjk 2-3½

       D;k vf/kfu;e dh /kkjk 79¼x½ ds v/khu cuk, x, fofu;e] lu~ 1961 ds vf/kfu;e ds v/khu fojfpr LFkk;h vkns‘k ij vfHkHkkoh gksaxs\ ¼iSjk 12½

       vfHkfu/kkZfjr % fo|qr ¼çnk;½ vf/kfu;e dh /kkjk 79¼x½ esa eaMy ds fy, vkuq"kafxd ‘kfDr micaf/kr gSA vr% og vkS|ksfxd miØe vkSj mlds deZpkfj;ksa ds chp lsok dh ‘krsZ fofu;fer djus ds fy, jkT; dks çnku dh xbZ fofufnZ"V fo/kk;h l{kerk ij vfHkHkkoh ugha gksxh] u mlds }kjk jkT; ljdkj vkS|ksfxd laca/kksa ds fofu;eu ls lacaf/kr viuh fo/kk;h ‘kfDr ls oafpr gh gksxhA ¼iSjk 20½

       ;g rF; n`f"V esa j[krs gq, fd jkT; ljdkj dks vkS|ksfxd laca/kksa ds fofu;eu vkSj Je&fooknksa ds fujkdj.k ds fy, vf/kfu;fer djus dh vuU; ‘kfDr gS] -----og eaMy }kjk /kkjk 79¼x½ ds v/khu viuh ‘kfDr ç;qDr dj fojfpr fofu;eksa ij vfHkHkkoh gksxhA ¼1987½ 4 ,l lh lh 691 voyafcrA ¼iSjk 24½

       ¼2½ vkS|ksfxd fu;kstu ¼LFkk;h vkns‘k½ vf/kfu;e] 1961 ¼e-ç-½& &/kkjk 2 rFkk 2¼2½& &vf/kfu;e dk ykxw gksuk& &vf/kfu;e ds v/khu mica/k& &eaMy ds miØe dks ykxw gksrs gS D;ksafd tc vf/kfu;e ço`Ùk gqvk rc og vfLrRo esa Fkk& &vf/kfu;e dk ykxw gksuk& &/kkjk 2¼2½ ds v/khu jkT; ljdkj dh vf/klwpuk }kjk gh vioftZr fd;k tk ldrk gSA ¼iSjk 25½

       ¼3½ vkS|ksfxd fu;kstu ¼LFkk;h vkns‘k½ vf/kfu;e] 1961 ¼e-ç-½& &/kkjk 2¼2½& &fo|qr ¼çnk;½ vf/kfu;e] 1948& &/kkjk 79¼x½& &eaMy us vius miØe ds deZpkfj;ksa ds fy, ewy vkSj iwjd fu;e vaxhdkj fd,& &og lu~ 1948 ds vf/kfu;e dh /kkjk 79¼x½ ds v/khu eaMy }kjk fojfpr fofu;e le>s tk,¡xs& &Dksafd lu~ 1961 ds vf/kfu;e dh /kkjk 2¼2½ ds v/khu vf/klwpuk tkjh ugha dh xbZ& &fofue ykxw ugha gksaxsA

       D;k] fu/kkZfjr deZ LFkkiu ds deZpkfj;ksa dks NksM+ dj] vius deZpkfj;ksa ds fy, ewy vkSj iwjd fu;e vaxhdkj djrs gq, eaMy }kjk tkjh fofu;e fnukad 19-10-1963] jkti= esa fnukad 26-12-2000 dks çdkf‘kr vf/klwpuk rFkk lu~ 1961 ds vf/kfu;e dh /kkjk 2¼2½ ds dkj.k lu~ 1961 ds vf/kfu;e dk ykxw gksuk vioftZr gS\ ¼iSjk 12½

       vfHkfu/kkZfjr % lu~ 1961 ds vf/kfu;e dk çorZu vioftZr djus ds fy, vfuok;Z gS fd lu~ 1961 ds vf/kfu;e dh /kkjk 2¼2½ ds vuqlkj leqfpr vf/klwpuk tkjh dh xbZ gksA

       eaMy us ewy vkSj iwjd fu;e vaxhdkj fd, Fks tks Loeso mlds miØe ds deZpkfj;ksa dks ykxw ugha gksrs FksA mUgas eaMy }kjk vaxhdkj fd;k x;k FkkA vr% /kkjk 79¼x½ esa varfoZ"V mica/kksa dks /;ku esa j[krs gq,] ftl lhek rd ewy vkSj iwjd fu;eksa ds mica/k ykxw fd, x, Fks] eaMy ds deZpkfj;ksa ds fuca/ku vkSj ‘krsZ fofu;fer djus okys fofu;e le>s tk,¡xsA vr% jkT; ljdkj }kjk lu~ 1961 ds vf/kfu;e dh /kkjk 2¼2½ ds v/khu visf{kr vf/klwpuk tkjh dh tkuk vko‘;d FkkA

       ;g fookfnr ugha gS fd jkT; ljdkj us lu~ 1961 ds vf/kfu;e dh /kkjk 2¼2½ ds vuqlkj vf/klwpuk tkjh ugha dh gS rFkk bl n`f"V ls] mlds mica/k jkT; ds deZpkfj;ksa dks ykxw gksaxsA lu~ 1961 dk vf/kfu;e fo‘ks"k fof/k gS tcfd eaMy }kjk /kkjk 79¼x½ ds v/khu fojfpr fofu;e lk/kkj.k mica/k gSA vr% bl ekeys esa fof/kd lw= lk/kkj.k dFku fo‘ks"k dFku dk vYihdj.k ugha djrs ykxw gksxkA ¼2003½ 7 ,l lh lh 110] ¼2003½7 ,l lh lh 589] ¼1978½4 ,l lh lh 16 rFkk ¼1984½ 1 ,l lh lh 147 voyafcrA ¼iSjk 25 ls 28½

       ¼4½ fo|qr ¼çnk;½ vf/kfu;e] 1948& &/kkjk 79¼x½ rFkk 15& &e-ç- vkS|ksfxd fu;kstu ¼LFkk;h vkns‘k½ fu;e- 1963& &fu-14d& &e-ç- vkS|ksfxd laaca/k vf/kfu;e] 1960& &/kkjk 33 rFkk 99& &dsanzh ljdkj }kjk fojfpr lsok fu;e Lohdkj djus dk eaMy }kjk djkj& &djkj fu"ikfnr& &,slk djkj vf/kfu;fefr ugha gSa&deZpkfjksa dh lsokfuoZfÙk dh vf/klwfpr vk;q 58 o"kZ fof/kekU; gSA

       D;k çR;FkhZ eaMy us r`rh; Js.kh deZpkfj;ksa dh vf/kokf"kZdh vk;q de dj 58 o"kZ djus dh vf/klwpuk fnukad 26-12-2000 tkjh dj voS/k vkSj vf/kdkfjrkjfgr dk;Z fd;k\ ¼iSjk 12½

       vfHkfu/kkZfjr % lu~ 1963 ds fu;e 14d esa vf/kokf"kZdh vk;q 58 o"kZ fofgr gSA mls 60 o"kZ dh vk;q rd c<+k;k tk ldrk gS ;fn O;fDr dh lsok miØe ds fgr esa vko‘;d gS] ijarq mls 60 o"kZ dh vk;q ds i‘pkr lsok esa ugha j[kk tk,xk tc rd ijarqd ds vuqlkj] rRçfrdwy djkj@le>kSrk ;k vf/kfu.kZ; ugha gksA vr% vihykFkhZ laxe ds lnL;ksa dh vf/kokf"kZdh dh c<+h gqbZ vk;q ,slh fdlh Hkh fof/k ds v/;/khu Fkh tks ml {ks= esa çofrZr gksA tSlk ,rfLeuiwoZ ns[kk x;k] çR;FkhZ eaMy us vf/klwpuk fnukad 22-5-1998 tkjh dh ftlds }kjk vkSj ftlds v/khu mlus iwoksZDr djkj ij vuqeksnu dh eqgj yxkbZ Fkh] ftls djkj dh n`f"V ls] fdlh vU; fof/kekU; vf/klwpuk }kjk çfrLFkkfir fd, tkus rd çofrZr jguk FkkA eaMy us ,slh vf/klwpuk 26-12-2000 dks vf/kfu;e dh /kkjk 79¼x½ ds v/khu viuh dkuwuh ‘kfDr ç;qDr dj tkjh dj nh gSA ¼iSjk 36½

       /kkjk 79¼x½ esa eaMy dks vU; ckrksa ds lkFk eaMy ds vf/kdkfj;ksa vkSj vU; deZpkfj;ksa ds drZO;ksa] muds osruksa] HkÙkksa vkSj lsok dh vU; ‘krks± ds ckjs esa fofu;e cukus ds fy, l‘kDr fd;k x;k gSA vr% eaMy ,sls fofu;e cukus ds fy, l‘kDr Fkk tks vf/kfu;e ds mica/kksa ls rFkk vf/kdkfj;ksa ds drZO;] muds osru] HkÙks vkSj lsok dh vU; ‘krs± micaf/kr djus okys fu;eksa ls vlaxr ugha gkasA

       vr% vius deZpkfj;ksa dh lsok dh ‘krsZ] fofu;e ds vuqlkj ;k vU;Fkk] vf/kdfFkr djus dh eaMy dh ‘kfDr] bl {ks= esa çofrZr fdlh rRçfrdwy fof/k ds gh v/;/khu gksxhA fu;e 14d ls mikc) ijarqd ds vFkkZrxZr djkj fof/k ugha gS blfy, eaMy }kjk cuk, x, fofu;e ml ij vfHkHkkoh gksaxsA ¼iSjk 37 ,oa 38½

       ¼5½ Lokeh rFkk lsod&miØe ds deZpkjh&lsokfuo`fÙk dh vk;q esa ifjorZu& &dkZikfyd uhfr dk fo"k; gS& &ikZIr vkSj rdZiw.kZ dkj.kksa ls vuqKs; gSaA 1985¼2½ ,l lh vkj 579] ¼1997½ 10 ,l lh lh 741] 1975 ¼lIyh-½ ,l lh vkj 328 rFkk ¼2003½ 6 ,l lh lh 545 voyafcrA ¼iSjk 40½

       ¼6½ Hkkjr dk lafo/kku& &lkroha vuqlwph çfof"V 1] 2 ,oa 3 rFkk vuq- 254&laln vkSj jkT; viuh l{kerk ds Hkhrj fo/kku cuk ldrs gSa& &,sls fo/kku esa ,d ls vf/kd lwph vkPNkfnr gks ldrh gS&vuq- 254 dsoy rc vkdf"kZr gksrk gS dsanz vkSj jkT; }kjk le:i vk/kkj vkPNkfnr djrs gq, fo/kku çofrZr gksa& &vkJ dsoy çR;{k la?k"kZ dh n‘kk esa fy;k tk ldrk gSA , vkb vkj 1959 ,l lh 648] , vkb vkj 1979 ,l lh 898] ts Vh 2004¼1½ ,l lh 375 rFkk ts Vh 2004¼1½ ,l lh 563 voyafcrA ¼iSjk 21 ,oa 23½