Holding

The amendment is constitutionally valid; the classification is reasonable and not violative of Articles 14, 16, 21, and the scheme is insulated against arbitrariness, and non‑joinder of parties is not required.

Summary

The State of Andhra Pradesh amended its Police (Civil) Service Rules, 1998 to introduce an accelerated promotion scheme for Inspectors and Deputy Superintendents who performed outstanding work in anti‑extremist operations, irrespective of seniority. A group of police officers challenged the amendment as violative of Articles 14, 16, 21 and 311 of the Constitution, arguing that it created an arbitrary ‘class within a class’ and that the scheme was discriminatory. The Supreme Court examined the classification, held that officers willing to face hazardous duties constitute a distinct, rational class, and that the detailed multi‑tiered guidelines sufficiently guard against arbitrariness. The Court also ruled that when the validity of service rules is contested, it is not necessary to implead every person who might be affected. Consequently, the amendment was upheld, the Tribunal and High Court decisions were set aside, and the appeals were allowed.

Issues considered

Whether the amendment to the Andhra Pradesh Police (Civil) Service Rules introducing accelerated promotion for anti‑extremist operations violates Articles 14, 16, 21 and 311 of the Constitution of India.
Whether the classification of officers based on willingness to serve in extremist areas is a reasonable classification under Article 14.
Whether the scheme is arbitrary or discriminatory in violation of constitutional equality provisions.
Whether all persons likely to be affected must be impleaded when challenging the validity of service rules.

Legislation cited

Constitution of Indias. 14, s. 16, s. 21, s. 311

Subjects

service lawaccelerated promotionanti‑extremist operationreasonable classificationconstitutional validitypolice service rulesnon‑joinder of partiesArticles 14,16,21

Judgment

A GOVT. OF A.P. AND ANR.
v.
G. JAY A PRASAD RAO AND ORS.

MARCH 21, 2007

B [A.K. MATHUR AND TARUN CHA ITERJEE, JJ.]

Service Law:

Andhra Pradesh Police (Civil) Service Rules, 1998:
c
Note 2 to Rule 3 and_ Proviso to Rule 6-Constitutional validity of-
Inspectors of police and Deputy Superintendents of Police-Method. of
appointment-Accelerated promotion-By an amendment to the Rule a
scheme was introduced for accelerated promotion for the outstanding work
D in the field of anti-extremist operation as an incentive for these ofjicers-
Constitutional validity of amendment challenged before State Administrative
Tribunal-Tribunal struck down the amendment being violative ~f Arts. 14,
16 and 21-High Court affirmed the decision of the Tribunal and held that
the amendment did not satisfo the test of reasonable classification and it
farther observed that fortuitous circumstances cannot be made a basis for
E creating a separate class within the class-c--Correctness of-Held: The
F
"
classification is apparent which can be differentiated from the class ofpersons
who are prepared to sacrifice their lives as against the persons who want
to do the routine policing duties-This cannot be said to be a fortuitous
classification-The c/ass.ification is based on rational principle-Moreover;
F guidelines have beenji-i1med to check against arbitra1y promotion by picking
and choosing among the persons belonging to the same category-Hence,
amendment to the Rules declared valid-Constitution of India, 1950, Arts.
14, 16 and 21.

Practice and Procedure:
G Validity of Rules-Challenge to-Impleadment of necessary parties-
Requirement of-Held: It is not necessary to imp/ead all persons who are
likely to be affected as parties as it is not possible to identify who are likely
to be affected-Hence, it is not necessary to implead necessary parties when
the validity of Rules is challenged
H 256
GOVT. OF A.P. v. G. JAY A PRASAD RAO 257
The respondents were all Inspectors of Police working at various places A
and in various wings in the police Department in the State. Most of them were
working as Inspectors of Police in the city of Hyderabad. The Andhra Pradesh
Police (Civil) Service Rules, 1998 were amended by insertion of Note 2 to
Rule 3 and proviso to Rule 6. By this amendment a scheme was introduced
for accelerated promotion for the outstanding work in the field of anti- B
extremist operation as an incentive for the officers.
....
,. The respondents challenged the constitutional validity of the amendment
of the Rule before the State Administrative Tribunal. The Tribunal declared
Note 2 to Rule 3 of the Rules and Proviso to Rule 6 being violative of Articles
14, 16 and 21 of the Constitution and struck it down.
c
In appeal, the High Court, while affirming the decision of the Tribunal,
held that the amendment did not satisfy the test of reasonable classification
and it further observed that fortuitous circumstances cannot be made a basis
for creating a separate class within the class. Hence the appeals.
D
On behalf of the appellant, it was contended that despite these incentives,
.. +
few officers were prepared to accept the highly risky and challenging job;
that after introduction of accelerated promotion scheme naxal activities had
considerably decreased to the extent of I/3rd from 1997-2001 and that detailed
guidelines were issued for screening by three-tier committees.
E
On behalf of the respondents, it was contended that the present appeal
as well as the original applications filed before the State Administrative
Tribunal and the High Court should be dismissed on the question of non-
joinder of parties.
t
.> The following question arose before the Court:- F
Whether t_he amendment of the Andhra Pradesh Police (Civil) Service
Rules, 1998 and insertion of Note 2 in Rule 3 as well as proviso to Rule 6
could be declared ultra vires of Articles 14 and 16 of the Constitution.oflndia?

Allowing the appeals, the Court G
HELD: 1.1. It may be said at the outset that the Andhra Pradesh Police
--....../.
(Civil) Service Rules, 1998 were amended, looking to the dire need of the
State, in order to give incentive to the Police Officers for voluntarily coming
forward to meet the menace of extremist operations. The purpose is a laudable
H
---{._

258 SUPREME COURT REPORTS (2007] 4 S.C.R.

A one and nobody can take exception to this. In order to provide this incentive
service Rules had to be amended. Those persons who are prepared to volunteer
and take more risk in life why such kind of persons should not stand to gain
as against those persons who do not want to take risk in their lives. As a
matter of fact those who take risk in their lives and prefer to face hazardous
duties, such kind of persons form a class and such class of persons stand
B differentiated from other class of person who are not prepared to take risk in
their lives and want to continue with the normal police duties and seek their
promotion in due course of time. (Para 17) (272-D-GJ >-
A;

Ravi Paul v. Union of India, [1955) 3 SCC 300 and Havaldar Bhagat
Singh v. State of Ha.")lana, (1996J 8 SCC 649, referred to.
c
1.2. It is true that the Inspectors of Police form one category but in the
same category it can have two classes, one who is desirous of taking risk in
his life and does service to the society by taking hazardous assignment as
against other persons who want to continue with their usual police duties.
D Such classification cannot be-looked down upon as arbitrary or violative of
Articles 14 & 16 of the Constitution of India. The classification is apparent
_._
which can be differentiated from the class of persons who are prepared to
sacrifice their lives as against the persons who want to do the routine policing
..
duties. This cannot be said to be a fortuitous classification. The classification
is based on rational principle. Thus, the object which is sought to be achieved
E in the present case is to meet the challenge of the naxals and. to invite youth
and courageous persons to accept this challenge. It is true that some may get
an opportunity to serve and some may not but that is exigencies of service.
W-0oden equality is not possible. Similarly placed persons cannot be treated
dissimilarly. But that is not the case here. (Para 17J [272-F-H; 273-A-BJ
F +
2. The scheme/guidelines issued under the Rules by the State
Government are properly insulated against arbitrariness or discrimination. ""'
Therefore, in order to consider the case of accelerated promotion the matter
has "to be examined at various channels, first at the Unit head, thereafter a
committee headed by the Chief Secretary to the State Government at the State
G level and after his prolonged examination a person will be eligible for
accelerated promotion. Therefore, these guidelines have been made in order
to check that there should not be any arbitrary promotion and there should
"
not be any picking and choosing among the persons belonging to the same ~~

category. {Para 18) (273-B-C; 274-A-B)

H
I
{
__f-

GOVT. OF A.P. v. G. JAY A PRASAD RAO 259
...
'¥ 3.l. It is true that sometime it may operate as fortuitous circumstance A
that some get an opportunity and some may not g~t the same. But by that
fortuitous circumstance the rule cannot be held to be bad. It is possible that
in implementation of the rule, some arbitrariness or some favouritsm may be
shOwn that can be challenged as an individual action. Therefore, one has to
make a distinction between the validity of the Rules and the misuse of the
Rules. In case of misuse of the rule, that individual action can be challenged B
and it can be challenged on its merits but by that the whole scheme which has
.... been introduced for the laudable purpose cannot be said to be bad. (Para 19]
~

Ram Sharan v. The Dy. Inspector General ofPolice, AIR (1964) SC 1559
and S.J. Paras Kumar v. S./. Ram Charan, (2004) 6 SCC 88, relied on.
c
3.2. There is no gainsaying that those who have performed in extreme
situation they deserve better treatment but this has to be done within the four
corners of the Rules. In order to achieve that objective in view, this accelerated
promotion was conceived and necessary amendments were made in the Rules
and scheme/guidelines were issued by the State. Therefore, reading the D
amended rules with the scheme/guidelines together it leaves no manner of
.. doubt that such an amendment cannot be said to be discriminatory or arbitrary.
~
(Para 211

4. It is true that when the validity of the rules is challenged it is not
necessary to implead all persons who are likely to be affected as party. It is E
not possible to identify who are likely to be affected and secondly, the question
ofvalidity of the rule is a matter which is decided on merit and ultimately, if
the rule is held to be valid or invalid, the consequence automatically flows.
Therefore, the original application filed before the State Administrative
Tribunal or for that matter before the High Court does not suffer from the
t
vice of non-joinder of necessary party. (Para 25) (278-C-D)
F
.-'

Union of India v. E.S. Soundara Rajan, AIR (1980) SC 959; Makhanlal
Waza v. State ofJammu & Kashmir; (1971) l SCC 749; The General Manager,
Southern Railway, (1974) 4 SCC 335 and A. Janardhana v. Union of India,
(1983) 3 sec 601, referred to. G
CIVIL APPELLATE JURISDICTION: Civil Appeal No. 7384-7388 of2003.

-f From the Order dated 4. I0.2002 of the High Court of Judicature of
Andhra Pradesh at Hyderabad in W.P. Nos. 16809, 17119, 17122, 17127 &
17139/2002. H
I
~-

260 SUPREME COURT REPORTS (2007] 4 S.C.R.

A R. Sundaravardan, P. Vinay Kumar, and D. Bharathi Reddy for the
Appellants.

M.L. Verma, A.T.M. Rangaramanujam, R. Chandra Shekar Reddy, Satish
Galla, Satya Mitra, Venkateswara Rao Anumolu, Gouri Karunadas·; Anti Gupta,
and Rani Jethmalani for the Respondents.
B
The Judgment of. the Court was delivered by

A.K. MATHUR, J. I. These appeals ar~· directed against the order dated
4th October, 2002 passed by the Division Bench of the High Court of Judicature,
Andhra Pradesh at Hyderab_ad in batch of Writ Petitions filed by the State
C against the common order passed by Division Bench of the Andhra Pradesh
Administrative Tribunal (hereinafter to be referred to as 'the Tribunal') in
batch of original applications on 12th July, 2002 in OA No. 946112001 &
others.

2. The respondents herein were the petitioners before the Tribunal.
D They were all Inspectors of Police working at various places and in various
wings in the police Department in the State of Andhra Pradesh. Most of them
were working as Inspectors of Police in the city of Hyderabad. They
approached the Tribunal with a prayer to declare insertion ofNote-2 of Rule
3 and proviso to Rule 6 of the Andhra Pradesh Police (Civil) Service Rules,
E 1998 (hereinafter to be referred to as 'Rules of 1998') issued by G.O. Ms. No.
267, Home (Police-E) Department, .dated 26th November, 2001 by amendment
of Rule as arbitrary and discriminatory being violative of Articles 14, 16, 21 and
311 of the Constitution of India. •·

3. By this amendment a scheme was introduced for accelerated promotion
F for the outstanding work in the field of anti extremist operation . The Note
2 appended to Rule 3 reads as under:

"Note 2: The Government may consider the cases of deserving
Inspectors of Police and Deputy Superintendents of Police (Civil), for
accelerated promotions to the next higher ranks in recognition of their
G outstanding work in the field of anti-extremist operation irrespective
of their seniority as an incentive by following the relevant procedure
as specified by the Government from time to time in this regard."

And the Proviso to Rule 6 reads as ·under:

H "Provided that in the case of the accelerated promotions, the minimum
J- -

GOVT. OF A.P. v. G. JA YA PRASAD RAO [AK.MATHUR, J.] 261
service as specified above shall not apply." A
4. By virtue of these amendments in Service Rules of 1998, some Officers
got accelerated promotions on account of their performance in extremist areas.
The tribunal after elaborate consideration of the matter acceded to the prayer
of the petitioners (respondents herein) and declared Note 2 to Rule 3 of the
Rules and Proviso to Rule 6 being violative of Articles 14 & 16 of the B
Constitution and struck it down.

5. Aggrieved against this Order, a batch of writ petitions were filed
before the High Court.

6. The stand taken by the State before the Tribunal as well as before C
the High Court was that the State of Andhra Pradesh in order to tackle the
menace of terrorism conceived this scheme as an incentive for the officers so
that more and more officer could come forward to meet this menace to the
society and therefore, as a measure of incentive this scheme was conceived
by the State. It was .pointed out that the scheme is neither arbitrary nor D
discriminatory and it is a scheme for a special class/category of persons who
do the daring job in containing the menace of terrorism by naxal groups.
Therefore, it is not discriminatory. It was also pointed out that a scheme had
been prepared whereby the cases of such persons were screened at two to
three levels and the guideline was issued by Government Order Ms No. 280
on 17.9.2002. As per this guideline, the Unit Officers/ Superintendents of E
Police<::ommissioners of Police shall assess the outstanding work done in the
Anti-Extremist Operations by the Police Officers working under them. They
shall recommend the cases to the Director General & Inspector General of
Police for consideration through their immediate superior Officer. The Unit
Officers/Superintendents of Police/ Commissioners of Police while forwarding F
the recommendations of deserving cases shall broadly be guided by the
under mentioned conditions, viz., that the Police Officer shall have;

(i) been an approved Probationer;

(ii) performed outstanding work in the filed of Anti, Extrimist Operations,
(here the quality of work turned out shall be taken as criteria); G
(iii) uniformly satisfactory records; and
-f·
(iv) clean defaulter sheet for the last (6) years without any major
Punishments through out the service.
H
262 SUPREME COURT REPORTS [2007) 4 S.C.R.

A These are the guiding factors. The recommended cases shall be reviewed by
the Superior Officers and shall be forwarded to the Director General & Inspector
General of Police with his remarks. The Director General & Inspector General
of Police shall send all such cases received from the various Unit Officers/
Superintendents of Police/Commissioners of Police to the Additional Director
General of Police/Inspector General of Intelligence Department for scrutiny
B and his remarks. The Additional General of Police/Inspector General of Police
of Intelligence department will in tum send such cases to the Special
Intelligence Branch (SIB) of the Intelligence Department which exclusively ·
monitors the Anti-Extremists Operations of the State for scrutiny and
recommendations. Thereafter, the Inspector General/Deputy Inspector of Police
C of the Special Intelligence Branch will scrutinize all such cases thoroughly as
to the quality of each such case and forward back the special remarks. The
same shall be forwarded to the Director General & Inspector General of Police
by the Additional Director General of Police/Inspector General of Police,
Intelligence Department with his remarks. All such cases shall be placed
before a Departmental Committee which shall have the;
D
1. Additional Director General of Police/Inspector General of Police
(L&O), ... Chairman
2. Additional Director General of Police/Inspector General of
Police(Admn.) ... Member
E 3. Additional Director General of Police/Inspector General of Police
(Intelligence) Member
4. Additional Director General of Police/Inspector General of Police
· (Grey House) ...Member
5. Additional Director General of Police/Inspector General of Police
F
(Special Intelligence Branch) ...Member

7. After scrutiny by the High Level Committee the matter will be referred
to State Government. It was also clearly mentioned that the aforesaid committee
while forwarding the cases will keep in mind the guidelines mentioned above.
G The Additional Director General of Police/Inspector General of Police may
order accelerated promotion on the basis of such recommendation from the
rank of Police Constable to Sub-Inspector of Polic~ to the next higher rank.
}-
The cases of the Police Officer and above the rank of Inspector of Police shall
be forwarded to the Government by the Director General & Inspector General
of Police for consideration of Accelerated Promotions and that shall be
H considered by a High Level Committee constituted by the Government. That
_i--

GOVT. OF A.P. v. G. JA YA PRASAD RAO [A.K.MATHUR, J.] 263
. "1- - Committee shall be headed by (i) Chief Secretary to Government as Chairman, A
(ii) Principal Secretary to Government, Home Department as Member, (iii)
Secretary to Government, Home Department as member, (iv) Secretary to
Government (Services), General Administration Department as member and (v)
Director General & Inspector General of Police, Andhra Pradesh, Hyderabad
as member. The Deputy Secretary or Joint Secretary or Additional Secretary
who is dealing with the police subject in Home Department shall function as
B
Secretary to this Committee. This Committee shall also be guided by the
following eligibility conditions namely; the concerned Police Personnel shall
have;

(i) perfonned outstanding work in the field of Anti-Extremist.
c
(ii) unifonnly satisfactory record; and

(iii) a clean defaulter sheet for the last six years without any Major
Punishments through out the service.

This committee shall meet once in three months to review such cases. These D
guidelines were issued for the performance of accelerated promotions. It is
..)

,, also pointed out that despite these incentive, few officers were prepared to
accept the highly risky and challenging job. The Police Personnel right from
the Constable to IPS Officer were targeted by the naxals more than 480 laid
down their lives including an I.P.S. Officer. It was also pointed out that after
introduction of accelerated promotion scheme naxal activities have considerably E
decreased to the extent of 1/3rd from 1997-200 l.

8. Though the Tribunal as well as the High Court found that the
amendment in Note 2 to Rule 3 as well as proviso to Rule 6 are held to be
'1 ultra vires as it has been observed by the High Court that it creates a class
~
__, within class. The High Court held that the amendment did not satisfy the test
F
of reasonable classification and it further observed that fortuitous circumstance
cannot be made a basis for creating a separate class within the class. Therefore,
the High Court came to the conclusion that the classification made upon such
basis cannot be treated as a reasonable classification. It was also observed
that fortuitous circumstances cannot be made the basis for creating class out G
of large number of persons similarly situated. It was also pointed out that just
because some persons were lucky enough to get a posting in the naxal
:-1- affected area, they got accelerated promotion but others who were not
fortunate to get a posting in the naxal affected area, they were denied
/
' promotion. It was submitted that even the officers posted in same unit may
H
I t-
f

~

264 SUPREME COURT REPORTS [2007] 4 S.C.R.
.
~
A not get posting in the Police-station where there is naxal affected area and -\f
others are lucky enough to get the posting, then they stand to gain and
others who are not lucky enough to get posting in that area they will be
denied the, oppo~nity. Therefore, it is. discriminatory as there is a class
~ithin class, similarly situated persons are treated dissimilarly i.e. equals are 1-
treated .uneql!a.lly. Therefore, this classification, according to the High Court
B is not reasonable classification and it is not founded on intelligible differentia I·
which distinguishes one group from the other.
.,
'>-

9. Learned counsel' for the appellant-State has pointed out that the
..
reasoning given by the High Court is not correct. It is pointed out that the
c classification is based on intelligible differentia that those persons who have
faced the bullets and <lid the outstanding job to check the naxal menace then
they form class in itself and in order to confer the benefit to such persons
th~ .scheme was conceived. The obje~t was to encourage more and more
persons to come forward for this daring job. Therefore, it was submitted that
the amendments have objects sought to be achieved and two class of persons
D can be distinguished with each other. The rational basis to distinguish one
class from the other class is sacrifice of people to accept the challenge of
.....
naxal menace. Those who dare need to be rewarded. In order to substantiate
his submissions learned counsel invited our attention to the decisions of this
•
Court in Ravi.Paul & Ors. v. Union of India & Ors. [1995] 3 SCC 300 &
Hava/dar Bhagat Singh & Ors. v. State ofHaryana & Anr., [1996] 8 SCC 649.
E
I 0. In the case of Hava/dar Bhagat Singh and Ors, v. State of Haryana
Y-
and Anr., reported in [1996] 8 SCC 649, the question was that the State
Government issued a circular dated 7.10.1991 in respect of ex-servicemen who
.,..__
had entered military service before emergency, prohibiting the withdrawal of
_.... \-
F the benefits from them if they had joined the State Government service before
the date of the amendment of the Rules and directing to withdraw the benefits ...__

from such of them as had joined the service. of the State Government
subsequent to the date of amendment of the rules. This withdrawal of the
benefits were challenged that it was arbitrary and discriminatory. Considering
the validity of this circular by the State of Haryana, their Lordships observed
G as under:
'
"It was open to the State to withdraw the offer, but not qua those who
. had already accepted the offer and joined the State Government service. r
Hence was rendered the decision in K. C. Arora case. The State
Government did not withdraw the offer wholly but restricted it to
H "·
GOVT. OF A.P. v. G. .IA YA PRASAD RAO fA.K.MATHUR . .I.] 265

those who had enrolled or were commissioned in the armed forces A
during the emergency. The State Government was entitled to do so.
In our view, there is a clear and intelligible difference between those
who had already chosen the armed forces as a career when the
emergency was declared and those who, in response to the nation's
call, joined the anned forces after the emergency was declared. It was B
in the country's interest at that critical juncture to make service in the
armed forces attractive and compensate those who would otherwise
have chosen other vocations. The grant of benefits to the latter class
while denying them to the former class is in no way arbitrary or
discriminatory."·

11. In another case of Ravi Paul and Ors. v. Union of India and Ors.,
c
reported in [1995] 3 sec 300, their Lordships observed as under:

"The ECOs who were absorbed/appointed to the BSF during the
period 1967-71 had joined the Army during the emergency in the wake
of the Chinese aggression. By joining the Army when the country D
needed their services they had made a sacrifice. Moreover, they were
absorbed in t'1e BSF at a time when there was need for competent
officers in the BSF and in order to attract such officers in the BSF it
was considered necessary to give the benefit of the service of the
Army for the purpose of seniority in the BSF to the officers who were
appointed/absorbed in the BSF during 1967-71. The SSCOs had joined E
the Anny as a career after the emergency resulting from the Chinese
aggression was over. When they were absorbed/appointed to the BSF
during the period 1974-78 there was a change in the policy of the
Government of India and the benefit of the service in the Army was
~·
not to be given to the SSCOs who were absorbed/appointed in the p
'
BSF after release from the Army. This condition was expressly
mentioned in their letters of appointment and they opted to join the
BSF knowing fully well that their Army service would not be counted
for seniority in the BSF. The ECOs who were absorbed/appointed in
the BSF during the period 1967-71 and the SSCOs who were absorbed/
appointed in the BSF during the period 1974-78 are officers belonging G
to two different categories and they cannot be regarded as persons
similarly situate."
--+
12. Therefore, in view of the fact that Officers who have joined the
service to the State have been rewarded for their past service rendered during
Chinese aggression and such class of persons were found to be treated as H
266 SUPREME COURT REPORTS [2007) 4 S.C.R.

A class apart.
13. Learned counsel for the respondents submitted that the respondents
have nothing against the scheme and accelerated promotion but it is going
to operate in a very discriminatory and arbitrary fashion. It was pointed out
that in one unit if there are ten Police-stations and only three are naxal
B affected area and one of the Inspectors gets a chance to serve in that naxal
affected area, he stands to benefit. Therefore, learned counsel for the
respondents submitted that there is no criteria for posting person in any naxal
_
......... _
affected area it gives unbridle power in the hands of unit head in choosing
persons for such posting. He pointed out that so far as the condition for
C serving for two years in naxal affected are who had benefit of accelerated
promotion is understandable but the question is how to pick such persons
for posting in that area where he can show his chivalry or bravery.

14. We have heard learned counsel for the parties and perused the
records. Before we advert to decide the issue on merits, it may not be out of
D place to mention the scheme of the Rules of 1998. The Rules of 1998 laid down
the method of recruitment to the posts mentioned in the Andhra Pradesh
Police service. Rule 2 contemplates the constitution of service. The service
is divided into three categories. Category (I) consists of Additional
..
Superintendent of Police (Non-Cadre) including Officer~on-Special Duty and
Additional Deputy Commissioner of Police. Category (2) consists of Deputy
E Superintendent of Police including Assistant Commissioner of Police other
than Assistant Commissioner of Police (Headquarters and City Armed Reserve).
Category (3) consists of Inspector of Police and Inspector of Police (Women).
Rule 3 deals with method of recruitment. Rule 3 with appended Note 2 is
reproduced under :
F
3. Method of appointment:

Subject to the,other provisions in these rules, the method of appointment
for the several categories mentioned in column (I) shall be by the method
specified in the corresponding column (2) of the Table below:
GOVT. OF A.P. v. G. JA YA PRASAD RAO [AK.MATHUR, J.] 267

A
TABLE

:::ategory (I) Method of appointment (2)

I, Additional Superintendent of By promotion of Deputy
Police including Officer on Special Superintendent of Police (Category - B
Duty and Additional Deputy 2)
. Commissioner of Police

2. Deputy Superintendent of Police (i) By direct recruitment; and
including Assistant Commissioner
of Police other than Assistant
(ii) By prom<:>tion of Inspector of c
Police (Category-3)
Commissioner of Police
(Headquarters and City Armed
Reserve)

3(a) Inspector of Police By appointment by transfer of Sub-
h,1spector of Police in the Andhra
D
Pradesh Police (Civil Police)
Subordinate Service.

3(b) Inspector of Police (Women) By appointment by transfer of Sub-
Inspector of Police (Women)in the E
Andhra Pradesh (Civil Police)
Subordinate Service.

Note 1: In every cycle of ten vacancies, the appointment to the post of
Deputy Superintendent of Police shall be as follows namely:-
y
F
~ lst vacancy By Direct Recruitment
2nd vacancy By Promotion
3rd vacancy By promotion
4th vacancy By Direct Recruitment
5th vacancy By Promotion G
6th vacancy By Promotion
7th vacancy By Direct Recruitment
-f
8th vacancy By Promotion
9th vacancy By Promotion
10th vacancy By Promotion. H
!
-~

268 SUPREME COURT REPORTS f2007] 4 S.C.R.
A Provided that appointment by transfer to the posts of Inspectors of -<
Police including Hyderabad City Police shall be made by the Deputy Inspector
General of Police concerned, or as the case may be by the Commissioner of
Police from a list of candidates approved by the Director General of Police in
the order indicated therein.

B Note 2: The Government may consider the cases of deserving
Inspectors of Police and Deputy Superintendents of Police (Civil), for
accelerated promotions to the next higher ranks in recognition of their
outstanding work in the field of anti-extremist operation irrespective
of their seniority as an incentive by following the relevant procedure
as specified by the Government from time to time in this regard."
c
So far as the method of recruitment is concerned, a Deputy Superintendent
of Police is entitled to be promoted to the post of Additional Superintendent
of Police and the Deputy Superintendent of Police is to be recruited by two
methods i.e. by direct recruitment or by promotion from the Inspector. of
D Police. The Inspector of Police can be appointed by transfer of Sub-Inspector
of Police in the Andhra Pradesh Police (Civil Police) Subordinate Service and
Inspector of Police (Woman) can be posted by transfer of Sub-Inspector of
Police (Woman) in the Andhra Pradesh Police (Civil Police) Subordinate Service.
Note 2 contemplates additional method of recruitment by way of accelerated
promotion out of the Inspectors of ·Police and Deputy Superintendents of
E Police to the next higher rank i.e. Deputy Superintendent of Police and
Additional Superintendent of Police in recognition of their outstanding work
in the field of anti-extremist operation irrespective of their seniority as an·
incentive measure as per the procedure laid down by the Government of
Andhra Pradesh from time to time. Rule 4 makes reservation of appointment.
F Rule 5 lays down age and qualification with which we are not concerned. Rule
6 deals with minimum service wh'ich will be relevant for our consideration. It
reads as under :

"6. Minimum Service :

No person shall be eligible for appointment by transfer or
G promotion unless he is an approved probationer and has put in
service in the category from which promotion or transfer is made as
specified below :

(a) not less than five years for a Deputy Superintendent of Police
to be promoted as Additional Superintendent of Police (Non-cadre),
H
I

_J--

GOVT. OF A.I'. v. G. .IA YA PRASAD RAO [A.K.MATHUR. J.J 269

(b) not less than six years for Sub-Inspector of Police and for A
Inspector of Police to be promoted as Inspector of Police and Deputy
Superintendent of Police respectively.

Provided that in the case of the accelerated promotions, the
minimum service as specified above shall not apply."
B
As per Rule 6, a Deputy Superintendent of Police will not be entitled for
promotion as Additional Superintendent of Police unless he has put in five
years of service and not less than six years of service for Su_b-lnspector of
Police and Inspector of Police to be promoted as Inspector of Police and
Deputy Superintendent of Police respectively, meaning thereby that a Sub-
lnspector of Police in order to be promoted as Inspector of Police will have C
to put in six years of service and likewise an Inspector of Police will have to
put in six years of service to be promoted as Deputy Superintendent of Police.
The proviso to Rule 6 reads as under :

" Provided that in the case of the accelerated promotions, the
minimum service as specified above shall not apply. " D
Therefore, for accelerated promotion, the requirement of minimum service has
been dispensed with. Rule 7 deals with probation and for direct recruitment
to the post of Deputy Superintendent of Police (Category-2) the period of
probation shall be two years and six months on duty within a continuous E
period of three years. Rule 9 deals with tests which are not relevant for our
purpose in the present controversy. Rule I 0 deals with the unit of appointment.
It has relevant bearing on the issue involved in the present case. Therefore,
it is reproduced as under :

" 10.Unit of appointment
F
For purposes ofrecruitment, appointment, discharge for want of vacancy,
re-appointment, seniority, promotion, transfer and posting and appointment
as full member to the posts specified in column (2) of the table below, the unit
c,f appointment shall be as specified in column (3) thereof-
G

-t
270 SUPREME COURT REPORTS [2007] 4 S.C.R.

A TABLE
Category Post Unit of appointment
(I) (2) (3)
..
.). (a) Inspector of Police Zone-I Comprising Srikakulam
Vizhmaragam and!
B Visakhapatllam districts
(b) Inspector of Police Zone~n Comprising EastGodavari,
(Woman) West Godavari and Krishna
Districts

Zone-Ill Comprising.Guntur;
c Prakasam:and·Nellore.
Districts:

Zone-IV Comprising:Chittor,
Cuddapah,. Anantapur· and
D Kumool Districts.
Zone-V Comprising·Adilabad,
Karimnagar;Warangal And ...
Kliammam ·Districts:

Zone-VI Comprising;Nii.am·atfad,.
E Mahaboobnagar; Medak,
Nalgonda. ami: Ranga·
Reddy DistriCts:

A:rea:under.tHe::jurisdiCtion
Ofthe·Commissioner of -
F Police; Hyderab-ad;'"

Rule: 11 deals with transfer and postings which· reads as under:

1L Transfer and postings:
G
(a) A member of the service shall be· liable:to serve: in any part
of the State of Andina Pradesh or whell' so ordered: by the State
Government in any part of India; outside in: the:said State: 'r

Provided that nothing contained in. this. sub"rule: shall effect the
H operation of the provisions of Chapter-XII im Part-VII of the
I

.J-

GOVT. OF A.P. v. G. JAY A PRASAD RAO [AK.MATHUR, J.] 271
Fundamental Rules in regard to transfer of officers to Foreign Service: A
Provided further that no such member shall be posted or transferred
to any post unless he possesses such special qualifications and has
passed such special tests as may be prescribed for such post in these
rules.
B
(b) A direct recruit Deputy Superintendent of Police, Category-2
shall be transferred and posted at Assistant Commandant, Andhra
Pradesh Special Police Battalions and shall remain in the Battalions
compulsorily for a period of three years. The Service rendered in the
Andhra Pradesh Special Police Battalion shall be counted for the
purpose of reckoning qualifying service for select list. C
(c) The transfers and postings in the case of Additional
Superintendent of Police (Non-Cadre) and Deputy Superintendent of
Police, shall be made by the Government.

(d) In the case of Inspectors of Police, the transfers and postings D
shall be made within the unit specified in rule-10, by the Commissioner
of Police and the Deputy Inspector General of Police concerned except
in the case of Units IV and V. The transfer and postings in the case
oflnspectors of Police in Units-IV and V shall be made by the Deputy
Inspector General of Police, Kurnool and Warangal, respectively."
E
15. Reading of Rules 10 and 11 says that there are six zones in the State
comprising of various districts and so far as posting of Deputy Superintendent
of Police and Additional Superintendent of Police is concerned, it has to be
made by the State Government though there is no bar to posting any member
of the service in any part of the State of Andhra Pradesh but for the convenient
administrative control the State has been divided into various zones and each F
zone is headed by Deputy Inspector General of Police or Inspector General
of Police, as the case may be. So far as the transfer and posting of Inspector
of Police is concerned, it has to be made within the unit as specified in Rule
10, by the Commissioner of Police and Deputy Inspector General of Police
concerned except in the case of Units IV and V. The transfer and postings G
in the case of Inspectors of Police in Units IV and V shall be made by the
Deputy Inspector General of Police, Kurnool and Warangal, respectively. Rule
I2 lays down uniforms grant etc. We are not concerned with other part of the
Rules.

I 6. Now, in this backdrop of the administrative set up we will have to H
272 SUPREME COURT REPORTS [2007] 4 S.C.R.

A examine the amendment and the guidelines which have been issued by the
Government of Andhra Pradesh by G .O.Ms. No.267 dated 26.11.200 I. So far
as the posting of the Deputy Superintendent of Police and Additional
Superintendent of Police is concerned that is within the_ power of the State
Government and so far as the Inspector of Police is concerned, it is within
B the power of Inspector General of Police i.e. the Police Commissioner or by
the Deputy Inspector General of Police. We are primarily concerned in the
present case with regard to the accelerated promotion of the Inspectors of '"
Police to the post of Deputy Superintendent of Police and Additional -""-
Su.perintendent of Police. The State of Andhra Pradesh is divided into various
zones as pointed out above and some of them are very s~nsitive areas. It has
C been pointed out that some zones i.e. Zones V & VI are by and large affected
by the extremist operations. Therefore, it was submitted that some who could
get posting in naxal area, he may stand to benefit and on account of that
fortuitous circumstance he may get accelerated promotion and march over the
persons similarly situated.

D 17. Now, coming to the question whether this amendment of the rules
and insertion of Note 2 in Rule 3 as we!l as proviso to Rule 6, could be
declared ultra vires of Articles 14 & 16 of the Constitution of India. It may
be said at the outset that these rules were amended looking to the dire need
of the State in order to give some incentive to the Police Officers for voluntarily
E coming forward to meet the menace of extremist operations. The purpose is
laudable one and nobody can take exception to this. In order to provide this
incentive service Rules had to be amended. Those persons who ·are prepared
to volunteer and take more risk in life why such. kind of persons should not
stand to gain as against those persons w_ho do not want .to talce risk in.their
life. As a matter of fact those wh~ take risk in their life and prefer to face
F hazardous duties, such kind. of persons forms a class and such 9lass of
persons stand differentiated from other class of persons who are not prepared
to take risk in their life and want to continue with the normal police duties
and seek their promotion in due course of time. It is true that the Inspectors
of Police form one category but in the same category it can have two classes,
G one who is desirous of taking risk in their life and do service to the society
by taking hazardous assignment as against other persons who want to con'tinue
with their usual police duties. Such Classification cannot be looked down as
arbitrary or violative of Articles 14 & 16 of the Constitution of India. The 'r
classification is apparent which can be differentiated from the class of persons
who are prepared to sacrifice their life as against the persons who want to
H do the routine policing duties. This cannot be said to be fortuitous
GOVT. OF A.P. v. G. .IA YA PRASAD RAO [A.K.MATHUR. J.] 273
classification. The classification is based on rational principle. Thus the A
object which is sought to be achieved in the present case is to meet the

- challenge of the naxals and to invite youth and courageous persons to accept
this challenge. It is true that some may get an opportunity to serve and some
may not but that is exigencies of service. Wooden equality is not possible.
Similarly placed person cannot be treated dissimilarly. But that is not the case B
here.

18. We have already highlighted above the scheme/ guidelines issued
under the Rules by the State Government. The guidelines are properly insulated
against arbitrariness or discrimination. Principally four guidelines have been
laid down, namely that a person who becomes eligible for accelerated promotion C
should be an approved probationer and he has performed outstanding work
in the field of anti-extremist operations ( here the quality of work turned out
shall be taken as criteria); has uniformly satisfactory record and lastly, clean
defaulter sheet for the last six years without any major punishments throughout
the service. These factors are sufficient guidelines where any individual
action can be tested. At one point of time, Mr. Verma, learned senior counsel D
appearing for the respondents submitted that the proviso to Rule 6 which
dispenses with the minimum period of service would operate as arbitrary and
it will give rise to picking and choosing. But one of the guidelines clearly Jays
down that a person should have at least last six years very good Annual
confidential roll meaning thereby that he should have at least put in six years E
of service though under proviso .to Rule 6, the minimum period of service for
promotion has been dispensed with but nonetheless in the guidelines it has
been clearly laid down that a person should have very good ACR for the last
six years. That means though the rule provides that there is no necessity of
minimum period of service yet in the guidelines criteria has been laid down F
that a person should have at least six years clean service record. Not only
this, in order to promote a person on accelerated promotion the
recommendations by the Unit Officers are filtered at various stages. After
receipt of such recommendations it will go to the Committee of high ranking
police officers and in that his performance in extremist area will be examined
by the high power committee headed by the Director General and Inspector G
General of Police and proper investigation will be done by the Intelligence
Branch and they will examine the detailed performance of the incumbent as
-I- to how he has performed. Proper investigation is to be done by the Intelligence
Branch who are monitoring anti-extremist operation in the State. After proper
scrutiny the matter will be placed before a still higher committee headed by H
the Chief Secretary with Home Secretary and Director General of Police.
274 SUPREME COURT REPORTS [2007] 4 S.C.R.

A Therefore, in order to consider the case of accelerated promotion the matter
has to be examined at various channels, first at the Unit head, thereafter a
Committee constituted by the Police Department and then a Committee headed
by the Chief Secretary to the State Government at the State level and after
his prolonged examination a person will be eligible for accelerated promotion.
B Therefore, these guidelines have been made in order to check that there
should not be any arbitrary promotion and there should not be any picking
and choosing among the persons belonging to the same category. At one
point of time, impression was sought to be created that there are no guidelines
for giving, such accelerated promotion but after going through the detailed
G.O.Ms. No.280 dated 17.9.2002 as discussed above, we are satisfied that
C there are sufficient guidelines which check the arbitrary picking and choosing
of the persons for accelerated promotion. After going through these guidelines
we are of opinion that there is least possibility of picking and choosing of
the persons. under accelerated promotion scheme.

19~ However, learned counsel for the respondents submitted that
D notwithstanding the fact that the amendment may not be ultra vires of Articles
14 & 16 of the Constitution, it is ca1mble of being operated in an arbitrary
fashion because. the whole of the State of Andhra Pradesh is not naxal
affected area and Zones V & VI are the only naxal affected areas and he tried
to illustrate his point by an example that suppose an incumbent is working
E in Warangal district which comes under Zone V, which is said to be naxal
affected area and in that zone some of the Police-stations may be ear-marked
as extremist prone areas, incumbent may not get an opportunity of being
posted in that Police-Station for showing his chivalry though he may be
willing to work there. Therefore, there is no criteria laid down that how one
can secure a posting in that particular area in order to show his chivalry and
F secure accelerated promotion. There is some truth in his su.bmission but that
is more imaginative than real. It depends upon the In-charge of the Unit, be
it Commissioner of Police or the Deputy Inspector General of Police who has
to see the worth of the incumbent who can deliver the goods. It will not be
proper to interfere with his discretion as to who is suitable and who is not
G suitable to be posted in such naxal affected areas. Much depends upon his
wisdom and suitability of the incumbent. It is true that sometime it may
operate. as fortuitous circumstance that some gets an opportunity and some
may not get the same. But by that fortuitous circumstance the rule cannot be · '
held to be bad. It is possible that in implementation of the rule,_ some
H arbitrariness or some favouritism may be shown, that can be challenged as
.f

GOVT. OF A.P. v. G. JAY A PRASAD RAO (A.K.MATHUR. J.] 275
an individual action. Therefore, one has to make distinction between the A
validity of the Rules and the misuse of the Rule. In case of misuse of the rule,
that individual action can be challenged and it can be challenged on its merits
but by that the whole scheme which has been introduced for the laudable
purpose, cannot be said to be bad.

20. In this connection, learned counsel for the appellant- State has B
.... _,,_
invited our attention to a decision of this Court in Ram Sharan v. The Dy.
Inspector General of Police, Ajmer & Ors., AIR (1964) SC 1559'. This was a
case which arose from the Rajasthan Police. In that three tier system of the
Police administration was there in the State headed by the Inspector General
of Police, Deputy Inspector General of Police and Superintendent of Police.
It was pointed out that under Section 2 of the Police Act, one Police force
c
is in the State and the Police administration under the Inspector General of
Police could have ranges headed by the Deputy Inspector General of Police
and the districts are headed by the Superintendents of Police. It was pointed
out that it was necessary for efficient functioning of the Police force. It was
pointed out that looking to the local conditions and for efficient functioning D
~ of the police force recruitment at the Constable level is done district-wise
basis an4 promotion as Head Constable is also done on district-wise basis
by the Superintendent of Police who is expected to know their work. Same
idea was apparent at the second tier by which Head Constables in a Range
are treated as one unit for promotion to the rank of Sub-Inspector which is
E
vested with the Inspector General of Police. By providing promotion within
the range, the area is a little widened as compared to a district It is only when
one reaches the third tier and come to promotion of Sub-Inspectors of Police
as Inspectors of the Police that local knowledge is not insisted upon so much
-I as the work of Inspectors of Police and those above them is more of a
supervisory nature It was pointed out that because the Constable, Head F
Constable and Sub-Inspector deal with the public directly and in such a
situation local knowledge certainly plays an important part in the matter of
..... _ efficiency of the Police force and in that background their Lordships considered
that if the police administration works in three tier system then such
administration in three tier system cannot be struck down being discriminatory.
However, the Court was cognizant of the fact that abuse of the power of
G
transfer by Inspector General of Police for one Sub-Inspector from one range
-( to another, a case of glaring denial of equality before the law or glaring denial
of equal opportunity for employment in the service of the State may arise. But
the Court cannot strike down a system on the supposition that an Inspector
General of Police may abuse his power and create glaring instances of denial H
-{_

276 SUPREME COURT REPORTS [2007] 4 S.C.R.

A of equality before the law or of equal opportunity of employment in the
service of the State. In case of abuse in individual case same can· be struck
down and not the system. Therefore, simply because a particular provision
is capable of being abused is no ground to strike down the whole system.

21. In the case of SJ.Paras Kumar & Ors. v. S.I. Ram Charan & Ors.,
B [2004] 6 SCC 88, the question arose with regard to out of turn promotion on
the performance of some of the Constables, Head Constables and Assistant
Sub-Inspectors of Police in the anti-terrorist areas of Punjab though there was
no such provision under the Rules. Their Lordships observed that though the
rule does not permit such promotions out of turn for such activities, or for
C sports activities but in order to recognize the services rendered by such
persons Government shall frame necessary rules for such kind of services
rendered by the personnel in the anti-terrorist operation. Therefore, this Court
recognized that though the rule does not contemplate such promotion, the
courage shown by the persons in anti-terrorist operations should be recognized
by framing necessary rules. There is no gainsaying that those who have
D performed in extreme situation they deserve better treatment but this has to
~-.
be done within the four comers of the Rules. In order to achieve that objective
in view, this accelerated promotion was conceived and necessary amendments
were made in the Rules ·and scheme/ guidelines were issued by the State of
Andhra Pradesh. Therefore, reading the amended rules with scheme/ guidelines
E together it leaves no manner of doubt that such amendment cannot be said
to be discriminatory or arbitrary.

22. Learned counsel for the appellant- State has invited our attention to
the pleadings to show that none of the Inspectors of Police who filed the
petitions before the Andhra Pradesh Administrative Tribunal has nowhere
F alleged that at any point of time one of them came forward to go to the naxal
affected area and their request had been. turned down. We examined the
matter and we found that there is no such allegation_ made in the original
application nor learned counsel for the respondents could give us any
satisfactory reply whether any of these respondents Caf!Je forward for going
to the naxa.l affected area and his request has met with refusal. But the learned
G counsel for the resp.ondents only submitted that it is not for the incumbent
to make a request but it should come fr9m the State. Be that as it may, learned
counsel for the State has a point that when the respondents have no.! come_
-•. forward for going to the naxal affecte~ areas, it does. not lie in their mouth
to challenge the scheme. However, we have examined the validity of the
H amendment in the light of the submissions made by parties and our answer
GOVT. OF A.P. v. G. JA YA PRASAD RAO [A.K.MATHUR. J.] 277
is in negative. A
23. Before parting with the matter, in order to further safeguard that in
case of postings, though Rule I0 covers, but especially when the postings
are done in specially naxal affected areas out of the persons posted in that
zone, the concerned Unit in charge, be it Inspector General of Police or the
Deputy Inspector General of Police or Police Commissioner, may infonnally B
seek voluntary option from the Officers working in that zone whether they are
willing to be posted in the naxal affected police-stations so that even the
remote possibility of picking and choosing can be avoided. However, it is still
discretion of the concerned Unit in charge, he may after going through the
records may turn down the option of the incumbent if he finds that he may C
not come up to the expectation in that area. But the grievance of the person
that he was willing to go for an-extremist operation still he was not chosen
by the Unit in charge, could be redressed. This could be done by issuing a
circular seeking the option for such preferential posting in the unit but the
last choice remains with the Unit head and he may, for reasons to be recorded,
come to the conclusion that the incumbent may not be suitable for the job D
and may turn down the request but at least the incumbent will have the choice
to serve in anti-extremist operation.

24. An allegation was also made by some of the persons who have been
given ad hoc promotion under the scheme of accelerated promotion for not
being made parties. However, they were pennitted as intervenors. Learned E
counsel for the intervenors was also heard in the matter. He invited our
attention to a decision of this Court in Union of India & Ors. v. E.S.Soundara
Rajan etc., AIR (1980) SC 959, on the. question of discrimination and in that
case the argument of discrimination among the Railway Officials was not
upheld. It was also pointed out by learned counsel for the intervenors that F
the present appeals as well as the original applications filed before the
Andhra Pradesh Administrative Tribunal and High Court should be dismissed
on the question of non-joinder of necessary parties. Mr. Verma, learned senior
counsel for the respondents submitted that since the validity of the rule has
been challenged, therefore the petition before the A.P. Administrative Tribunal
or the writ petition before the High Court cannot be dismissed on the ground G
of non-joinder of necessary parties. It was also submitted by him that when
the question of validity of the rules are concerned, it is not necessary to
implead all the persons likely to be affected while challenging the validity of
the rules and in support thereofMr.Venna invited our attention to the following
decisions of this Court.
H
278 SUPREME COURT REPORTS [2007] 4 S.C.R.

A (i) (191111 sec 749
Makhanlal Waza & Ors. v.
State of Jammu & Kashmir & Ors.

(ii) [197414 sec 335
B The General Manager, South Central Railway, Secunderabad &
Anr. v. A. V.R.Siddhantti & Ors.

(iiO [1983]3 sec 601
A. Janardhana v.Union of India & Ors.

C 25. It is true that when the validity of the rules is challenged it is not
necessary to implead all persons who are likely to be affected as party. It is
not possible to identify who are likely to be affected and secondly, the
question of validity of the rule is a matter which is decided on merit .and
ultimately, if the rule is held to be valid or invalid, the consequence
D automatically flows. Therefore, the original.application filed before the Andhra
Pradesh Administrative Tribunal or for that matter before tne High Court does
not suffer from the vice of non-jpinder of necessary party. ·.
26. Since we have already held the rule to be valid, therefore, there is
no question of setting aside ·the promotions which have already been made.
E Hence, as a result of our above discussion, we find that the judgment and
order of the High Court cannot be sustained and consequently the orders
passed by the Andhra Pradesh Administrative Tribunal and the High Court
of Andhra Pradesh are set aside. The appeals are allowed with no order as
to costs.

F v.s.s. Appeals. allowed.