Holding

Sub‑rule (2) of Rule 3 of the General Rules does not override the Special Rules; promotion to Deputy Commissioner of Transport must be by selection as per the Special Rules.

Summary

R.S. Raghunath, an officer in the Karnataka Motor Vehicles Department, challenged the promotion of another officer to Deputy Commissioner of Transport, arguing that the Special Rules of 1976 required promotion by selection, not seniority‑cum‑merit. The Karnataka Administrative Tribunal dismissed his claim, holding that the later amendment to the General Recruitment Rules (Rule 3(2) with a non‑obstante clause) overrode the Special Rules. On appeal, the Supreme Court examined whether the non‑obstante clause gave the General Rules a overriding effect over the earlier Special Rules. The Court held that the Special Rules remained applicable because there was no clear inconsistency and the non‑obstante clause could not cut down the clear language of the Special Rules. Consequently, the appeal was allowed and the government was directed to consider the appellant for promotion by selection as per the Special Rules. The decision clarifies the interpretation of non‑obstante clauses and the hierarchy between special and general statutes in service law.

Issues considered

Whether Sub‑rule (2) of Rule 3 of the Karnataka Civil Services (General Recruitment) Rules, 1977 has overriding effect over the Karnataka General Service (Motor Vehicles Branch) (Recruitment) Rules, 1976.
Whether the non‑obstante clause in Rule 3(2) supersedes the Special Rules provision for promotion by selection to the post of Deputy Commissioner of Transport.

Legislation cited

Constitution of Indias. Article 309
Karnataka Civil Services (General Recruitment) Rules, 1977s. Rule 1(3)(a), s. Rule 3(1), s. Rule 3(2), s. Rule 4
Karnataka General Service (Motor Vehicles Branch) (Recruitment) Rules, 1976s. Special Rule for Deputy Commissioner of Transport (promotion by selection)

Subjects

service lawpromotionseniority‑cum‑meritselectionnon‑obstante clausespecial vs general rulesstatutory interpretationKarnataka civil servicesrecruitment rules

Judgment

•

R. S. RAGHUNATH A
v.
STATE OF KARNATAKA AND ANR.

OCTOBER 4, 1991

[KULDIP SINGH, K. JAYACHANDRA REDDY AND B
YOGESHWAR DAYAL, JJ.]

Service Law : Kamataka Civil Services (General Recruitment)
.r- ~ Rules,1977-{General Rules)/Karnataka General Service (Motor Vehicles
Branch) Recrnitment Rules, 197(1-(Special Rules) Promotion to the post of C
Deputy Commissioner of Transport-New Rule 3 (2) inserted in the General
Rule-Stipulating seniority...cum-merit as basis-Special Rules providing
selection as basis-i¥/iether the General Rules override the Special Rules.
No11-obstante clause-Whether has the effect of abrogati11g the earlier
Special law. ·
D
Statutory Co11strnction:
Non-obstante clause-Scope of-Whether to be necessarily and always
co-extensive with operative ponion--Courts to examine every word in its con-
text and use it in its widest sense.
The appellant was initially appointed as Inspector of Motor Vehicles E
and was promoted as Assistant Regional Transport Officer in 1976, when
the Karnataka General Service (Motor Vehicles Branch) (Recruitment)
Rules, 1976 were in force. Karnataka Civil Services (General
Recruitment) Rules, 1977 came into being thereafter. The appellant was
promoted as Regional Transport Officer in 1981. The General Rules of
1977 were amended in 1982 and sub·rule (2) of Rule 3 was inserted, and as F
per the new Rule 3(2) the second Respondent was. promoted as Deputy
Commissioner of Transport on seniority-cum-merit basis.

The appellant flied an Application before the State Administrative
. Tribunal questioning the promotion of the second Respondent on the
ground that promotion to the post of Deputy Commissioner of Transport G
should have been made by selection and not on seniority-cum-merit basis.
He also sought a declaration that the promotion of Respondent No. 2 was
illegal and Respondent No. 1 be directed to consider the case of the
appellant for promotion to the post of Deputy Transport Commissioner
wUh all consequenHal benefits. The Tribunal dismissed the application on H
387
388 SUPREME COURT REPORTS (1991) SUPP. 1 S. C.R.

A the ground that Rule 3(2) of the General Rules, which was introduced
later, had the effect of overriding the earlier special Rules, and hence the
promotion made as per Rule 3(2) of the General Rule was valid.

Aggrieved by the Tribunal's order, the ap:pellant preferred the
presentappeal, by special leave.
B
On behalf of the appellant it was contended that the Special Rules
. were exclusively meant to govern the recruitment and promotion. of
officers of various cadres of the Motor Vehicles Department and the
General Rules which generally regulate the recruitment of all State Civil
C Services broadly even though later in point of time cannot abrogate the
Special Rules and that they were not meant to be so since the Special Rules
were not superseded and were very much in force.

The Respondent-State contended that the non-obstante clause in
Rule 3(2) of the General .Rules which was introduced later clearly indicate
D the intention of the Legislature to supersede the Special Rules and
promotions from the cadre of Regional Transport Officer to that of )--
Deputy Commissioner of Transport could only be on the basis of
seniority-cum-merit and not by selection.

Allowing the appeal, this Court,
E
HELD: (By the. Court)

Sub~rule (2) of Rule 3 o~ Karnataka Civil Services (General
Recruitment) Rules, 1977 - (General Rules) has the overriding effect over
the Kamataka General Service (Motor Vehicles Branch) (Recruitment)
F Rules, 1976-(Special Rules). (400 D,E]

Per Majority (By Reddy,J.-Kuldip Singh, J. concurring)

1. Examining the scope of Rule 3(2) particularly along with other
G General Rules, the context in which Rule 3(2) is made is very clear. It is
not enacted to supersede the Special Rules. (403-G]

2.1 The non-obstante clause is appended to a provision with a view to
give the enacting part of the provision an overriding effect in case of a
conOict. But the non-obstante clause need not necessarily and always be
H co-extensive with the operative part so as to have the effect of cutting down
RAGHUNATH v. STAIB 389

the clear terms of an enactment and if the words of the enactment are clear A
and are capable of a clear interpretation on a plain and grammatical
construction of the words the non-obstante clause cannot cut down the
construction and restrict the scope of its operation. In such eases the
non-obstante clause has to be read as clarifying the whole position and
must be understood to have been incorporated in the enactment by the
B
Legislature by way of abundant caution and not by way of limiting the
ambit and scope of the Special Rules. Courts should examine every word
ofa statute in its context and use it in its Widest sense. (402 E-G; 403 -BJ

2.2 There should be a clear inconsistency between the two
enactments before giving an overriding effect to the non-obstante clause C
but when the scope of the pJ;"ovisions of an earlier enactment is clear the
same cannot be cut down by resort to non- obstante clause. [403 G-H]

2.3 Even the General Rules of which Rule 3(2) forms a part provide
for promotion by selection. As a matter of fact Rules'1.(3)(a), 3(1) and 4
also provide for the enforceability of the Special Rules. The very Rule 3 of . D
the General Rules which provides· for recruitment also provides for
promotion by selection and further lays down that the methods of
recruitment shall be as specified in the Special Rules, if any. The object of
these Rules is to provide broadly for· recruitment to services of all the
departments and they are framed generally to cover situations that are not E
covered by the Special Rules of any .particular department. In such a
situation both the Rules including Rules 1(3)(a), 3(1) and 4 of General
Rules should be read together. If so read it becomes plain that the.re is no
.. Y inconsistency and that. amendment by inserting Rule 3(2) is only an
amendment to the General Rules and it cannot be interpreted as to F
supersede the Special Rules. The Amendment also must be read as being
subject to Rules 1(3)(a), 3(1) and 4(2) of the General Rules themselves.
The amendment cannot be read as abrogating all other Special Rules in
respect of all departments. [403 H; 404 A-DJ

2.4 Where the.re are no special rules t. .,aturally the General G
Rules would be applicable. Just because there is ' ·.0;1-obstante clause in
Rule 3(2) it cannot be interpreted that the said a~ .. ·•dment to the General
Rules though later in point of time would abrogate the special rule the
scope of which is very clear and which CO-t!xists partkularly when no
patent conflict or incosistency can be spelt out. [404 D-EJ
H
390 SUPREME COURT REPORTS (1991) SUPP. 1 S. C.R.

A Maharaja Pratap Singh Bahadur v. Thakur Manmohan Dey and Ors.,
AIR 1966 SC 1931; Justiniane Augusto De Pieaade Barreto v. Antonie
Vicente Da Fonseca and Others etc. (1979] 3 SCC 47, relied on.

Mwiiswamy v. Superintendent of Police,_ ILR 1986 Kamataka 344,
approve_d.
B Eileen Louise Nicolle v. John Winter Nicolle, (1922) I AC 284; In Re
Chance, (1936) Ch. 266; Kunter v. Phillips, (1891) 2 Q.B. 267, referred to.

3. There is no doubt that a later statute ·may repeal an earlier one
either expressly or by implication. In the instant case there is no express
C repeal of the Special Rule providing for promotion by selection. There is
no patent inconsistency between the General and Special Rules but on the
other hand they co-exist. Therefore, there is no scope whatsoever to infer
the repeal by implication. [405 B,F)

Aswini Kumar Ghosh and Anr. v. Arabinda Bose and Anr, (1953]
D SCR 1; The Dominion of India (Now the Union of India) and Anr. v.
Shri11bai A. Irani and A11r, AIR 1954 SC 596; Union of India a11d A11other v.
G.M. Kokil and Ors. [1984) Suppl. SCR 196; Cha11davarkar Site Rat11a Rao
v. Ashalata S. Guram, [1986) 4 SCC 447; State of West Be11gal v. U11ion of
India, [1964) 1 SCR 371; Reserve Bank of India etc. v. Peerless General
Fi11a11ce a11d /11vestme11t Co. Ltd. & Ors, [1987) 1 SCC 424; Mu11icipal
E Council Palai v. TJ. Joseph,· AIR 1963 SC 1561, relied on.
Muniswamy v. Superintendent of Police, ILR 1986 Karnataka 344,
approved.

Maxwell on The Interpretation of Statutes, Eleventh Edition page 168,
F relied on.

4. The Government is directed to consider the case of the appellant
for promotion to the post of Deputy Commissioner of Transport on the
basis of promotion by selection, as provided in the Special Rules namely
Karnataka General Service (Motor Vehicles Branch) (Recruitment)
G Rules, 1976. (405 F-GJ
Per Yogeshwar Dayal, J. (dissenting): 1. It is clear from Rule 1(3) (a) of
the General Rules that the General Rules apply to recruitment to all State
Services and to all posts in connection· with the affairs of the State. A
perusal of different rul~s in the General Rules makes it deai: that the
'H
RAGHUNATII v. SfATE 391

general provisions which apply to recruitment to all posts under the A
Government are, specified in those Rules instead of repeating them in each
and every Special Rules of recruitment relating .to different departments.
It would be impossible to limit the application of the General Rules only
for recruitment to posts for which no Special Rules have been made. Thus
Rule 1(3) of the General Rules which accepted the applicabUity of Special B
Rules is itself a part of General Rules and the non-obstante clause is not
merely to what is mentioned to the contrary in the Special Rules but it is ·
also notwithstanding anything contained in the General Rules itself. [410
B-D;411 G] .

2. By the wording of rule 3(2) of the General Rules it is clear that C
the Government took conscious and deliberate policy decision and gave a
mandate to make only posts of Head of Departments, Additional Head of
Departments as selection posts and all other posts on promotion will be
filled by adopting the criterion of "seniority-cum-merit". To give effect to
that policy decision instead of amending every Special Rules of D
recruitment relating to different State Civil Services, the Government
~ made it provision in the General Rules by incorporating a non-obstante
clause stating that it would apply to all services and posts
notwithstanding the provisions in the General Rules or in the Special
Rules of the State. [410 E-GJ
E
3.1 The selection of 'best' very often has an element of chance which
may not be very conducive to proper climate and harmony in service.
Probably because of that experience the rule making authority thought it
' ... ..,.,,, fit that the process of promotion by selection should be confined only to
top posts and for rest of the posts the method should be promotion by
adopting ihe principle of seniority-cum-merit. There is a clear mandate of F
latest intention of the rule making authority contained in Rule 3(2) of the
Geueral Rules and this must be respected by the Court. Court is not .
expert body in knowing what is the best method for selection and to
assume that tht purest method must be found by the Court and
implemented even by violation of the Rule, will not be sound rule of G
construction of statute. [412 D-FJ

3.2 It is not the function ot" the Court to examine the efficacy of one
form of selection or the other. It is for the recruiting authority, namely,
the Government to examine it and enforce it in the way it Likes. [413 Cl
H
392 SUPREME COURT REPORTS [1991) SUPP. 1 S. C.R.

A 3.3 In the present case the respondent No. 2 was promoted after
the amendment of Rule 3 of the General Rules and there is no dispute ,.a..
about his recruitment by way of promotion on the basis of
seniority-cum-merit and that the earlier Special Rules which contemplated
the promotion by selection were not followed in view of the latest intention
B clearly given by a positive mandate. [411 G-H]

3.4 As laid down by this Court in Ajay Kumar Banerjee's case a
prior special law would yield to a later general law if it satisfies either of
the two conditions viz., that the two are inconsistent with each other; that -r '-
there is some express referente in the later to the earlier enactment. In the
C instant case, the special law contemplated promotion by 'selection'
whereas the later law, viz., Rule 3(2) of the general law contemplated
promotion by seniority-cum-merit. The ·two are inconsistent with each·
other and if fulfills the first condition. Since the ilon-obstante clause in
the later general law specifically mentions its efficacy inspite of the Special
D Law, the second condition is also fulfilled. Thus, in this case, the later
general law prevails over the earlier Special Law, having fulfilled not one
but both the conditions. [413 F-H; 414 A-~]

3.5 It was for the legislature to choose the method to indicate its
• intention. The Courts should n~t defeat their intention by over-looking it.
E Respondent No. 2 has been selected for promotion by following the
General Rules amending the Special Rules and it was strictly in
accordance with law. [414 C-D]

Ajay Kumar Banerjee and Ors. v. Union of India and Ors., [1984) 3
sec 127' relied on. .
F
Maharaja Pratap Singh Bahadur v. Man Mohan Dev, AIR 1966 SC
1931; Muniswamy v. Superintendent of Police, ILR 1986 Karnataka 344,
referred to.

CIVIL APPELLATE JURISDICTION: Civil Appeal No. 5617 of
G 1990.
From the Judgment and Order dated 9.8.1990 of the Karnataka Ad- -r-
ministrative Tribunal, Bangalore in Application No. 3155of1989.

P.P. Rao, S.R. Bhat, Alok Aggarwal and Ms. Mohini L. Bhat for the
H Appellant. ·
,
RAGHUNAIB v. SfATE[KUlDIP SINGH, J.) 393

P. Chidambaram, M. Veerappa (N.P.) and KH.Nobin Singh for the A
Respondents.

The Judgment of the Court was delivered by

KULDIP SINGH, J. Even the General Law later in tiJlle, prevails
over the earlier Special Law if it clearly and directly supersedes the said B
Special Law·- is an unexceptionable proposition of law. K Jayachandra
Reddy, J. has interpreted Rule 3(2) of General Rules consistently with
Rules 1(3)(a), 3(1) and 4(2) of the same Rules. Giving harmonious con-
struction to various provisions of the General Rules the learned Judge has
held that the General Rules do not supersede the Special Ru1es. Yogesh-
war Dayal, J. on the other hand has focused his attention on the language C
of Rule 3(2) of the General Rules and has concluded that there is clear
indication in the said Rule to supersede the Special Rules.

I have given my thoughtful consideration to the reasoning adopted by
the learned Judges in their respective judgments. Rule 1(3)(a) of the
General Rules, which lays down the extent and applicability of the General D
Rules, specifically provides that the General Rules shall not be applicable
to the State Civil Services for which there are express provisions under any
law for the time being in force. When the General Rules were enforced the
Special Rules were already holding the field. The Special Rules being
· "law" the application of the General Rules is excluded to the extent the
field is occupied by the Special Rules. I do not agree that the non-obstante E
clause in Rule 3(2) of the General Rules has an overriding effect on Rule
1(3)(a) of the said Rules. With utmost respect to the erudite judgment
prepared by Yogeshwar Dayal, J. I prefer the reasoning and the con-
clusions reached by K. Jayacbandra Reddy, J. and agree with the judgment
proposed by him.
F
K.JAYACHANDRA REDDY, J. This appeal is directed against the·
order of the Administrative Tribunal, Bangalore dismissing an application
filed by the appellant. The principal question .involved is whether Sub-
Rule (2) of Rule 3 of Karnatak.a Civil Services (General Recruitment)
Rules, 1977 ('General Rules' for short) has the overriding effect over the
Karnataka General Service (Motor Vehicles Branch) (Recruitment) Rules, G
1976 ('Special Rules' for short).

Fpr a better appreciation of the question it becomes necessary to
state few facts. The appellant was appointed initially as Inspector of Motor'
Vehicle and was promoted as Assistant Regional Transport Officer in the·· H
394 SUPREME COURT REPORTS (1991) SUPP. 1 S.C.R.

A year 1976 in which year the Special Rules were framed. In the year 1981
the appellant was promoted as Regional Transport Officer. Some of the
General Rules of 1977 were amended in the year 1982 and Sub-Rule 2 of
Rule 3 was inserted in the said Rules. In the year 1989 the second respon-
dent was promoted as Deputy Commissioner of Transport on seniority-
cum-merit basis alone as purported to have been provided in new Rule
B . 3(2) of General Rules. Being aggrieved by the same the appellant filed an
Application No. 3155/89 before the Karnataka Administrative Tnbunal
questioning the promotion of second respondent on the ground that the
promotion to the post of Deputy Commissioner of Transport should be by
selection from the cadre of Regional Transport Officers and not merely on
C seniority-cum-merit basis. His application was dismissed by the Tribunal
holding that Rule 3(2) of General Rules which was introduced later over-
rides the earlier Special Rules. It is this order which is questioned in this
appeal

_ Shri P.P. Rao, learned counsel appearing for the appellant con-
D tended that the Special Rules are exclusively meant to govern the recruit-
ment and promotion of offieers of various cadres of the Motor Vehicle
Department and the General Rules which generally regulate the recruit-
ment of all State Civil Services broadly· even though later in point of time·
cannot abrogate the Special Rules. and that they are not meant to do so
since the Special Rules also are very much in force inasmuch as they are
E not superseded. Shri P. Chidambaram, learned counsel for the State of
Karnataka contended that the non-obstante clause in Rule 3(2) of the
General Rules which was introduced later clearly indicate the intention of
the Legislature to supersede the Special Rules and promotions from the
cadre of Regional Transport Officer to that of Deputy Commissioner of
F Tra~port could only be on the basis of seniority-cum-merit ·and not by
selection. From the rival contentions. it emerges that the real question
involved is one of construction of non-obstante clause in Rule 3(2) and its
effect on the Special Rules providing for promotion to the post of Deputy
Commissioner. of Transport by· selection from the cadre of Regional
G Transport Officers.
. We shall now refer to the relevant Special and General Rules. The
Special Rules were framed. in exercise of the powers conferred by the
proviso to Article 309 of the Constitution of India in the· year 1976. The
Special Rules of recruitment for the category of post of Deputy Co~
H sioner of Transport reads thus:
RAGHUNATII v. S'fA1E [REDDY J.] 395

A
" Category of Method of Minimum
posts recruitment Qualification
1. 2. 3.
Deputy Transport By promotion by Must have put in not
Commissioner. selection from the less than five years of B
cadre of Regional service in cadre of
Transport Officers Regional Transport
Officers."

·It can be seen that this part of Special Rules clearly provides for , C
promotion to the post of Deputy Commissioner of Transport by selection
from the cadre of Regional Transport Officers who have put in not less
than five years of service. The General Rules were framed in the year 1977
and Rule 3 reads as under:

"Method of recruitment~(!) Except as otherwise provided in D
these mies or any other mies specially made in this behalf,
recmitment to any service or post shall be made by direct recmit-
ment which may be either by competitive examination or by
selection, or by promotion which may be either by selection or on
the basis of seniority- cum- merit. The methods of recrnitment
qnd qualifications shall be as specified in the mies of recrnitment E
specially made in that behalf;

tovided that in respect of direct recruitment to any service or
post when the method of recruitment is not specified in the
rules of recruitment specially made, the method of recruitment F
be by selection after an interview by the Commission, the Ad-
visory of Selection Committee or the Appointing Authority as
the case may be.
Provided further that no person shall be eligible for promotion
unless he has satisfactorily completed the period of probation
or officiation, as the case may be, in the post held by him. G
(2) Notwithstanding anything contained in these mies or in the
rules of recruitment specially made in respect of any seTVice or
post.
(a) the promotion to the post of Head of Department or the H
396. SUPREME COURT REPORTS (1991) SUPP. 1 S. C.R..

A post of an Additional Head of Department, if it is in a grade
equivalent to that of the Head of Department concerned, shall
be by selection;
Provided that for the purpose of promotion by selection, the
number of persons to be considered shall be such number of
persons eligible for promotion in the order of seniority, as is
B equal to five times the number of vacancies to be filled.

(b) the promotion to all other posts shall be on the basis of
seniority-cum-merit"
(Emphasis supplied)
c It may be noted that Sub-Rule 3(2) with which we are mainly con-
cerned was inserted in the year 1982. Shri Cbidambaram strongly relying
on the non-obstante clause in Rule 3(2) with which this Sµb-Rule begins,
contended that this general rule clearly supersedes the special law and
therefore, according to him, the Tribunal was right in holding that the
D promotion to the post of Deputy Commissioner of Transport could be only
on the basis of seniority-cum-merit. It is true that a simple reading of Rule
3(2) appears to lay down that notwithstanding anything contained in the
General Rules or in the Special Rules, the promotion to the post of a Head
or Additional Head of a Department only shall be by selection and that the
promotion to all other posts shall be on the basis of seniority- cum-merit.
E This clause (b) of Sub-Rule (2) is in general terms and as already noted the
General Rules indicate that they regulate general recruitment to all the
Karnataka State Civil Services broadly. It is not in dispute that just like the
Special Rules providing for recruitment of the Transport Department
there are such special rules in respect of many other departments also. It is.
F therefore clear that while General Rules broadly indicate that they regulate
general recruitment including .promotion to all the State Civil Services but
at the same time each Department has its own Special Rules of recruitment
and they are co-existing. Such Special Rules ofrecruitment for the Motor
Vehicles Department are not repealed by any provision of the General
Rules which are later in point of time. As a matter of fact Rule 21 which
G provides for repeal does not in any manner indicate that any of the Special
Rules stood repealed. It is in this background that we have to consider the
interpretation of non-obstante clause in Rule 3(2) of the General Rules.

At this juncture it is necessary to note that some of the rules of the
General Rules also provide for promotion by way of selection and that
H Special Rules providing for such promotion by selection should be adhered
RAGHUNA1H v. SfATE [REDDY, J.] 397

to. They are Rule 1(3)(a), the first part of Rule 3 and Rule 4 which are A
,,;, existing. ·in Sub-rule 1(3)(a) of the General Rules, we find. the folloWing
clause:
"1(3)(a) These rules shall apply to recruitment to all State Ser-
vices and to all posts in connection with the affairs of the State
of Karnataka and to members of all State Civil Services and to B
the holders of posts whether temporary or permanent except to
the extent otherwise expressly provided-
I
1 ~
(i) by or under any law for the time being in force; or

xx xx xX' c
(emphasis supplied)

This is the opening rule of the General Rules and it abundantly
makes it clear that the rest of the rules are subject to any other rules
expressly providing for recruitment. Then inAlause (1) of Rule (3) of the D
General Rules we find the words "Except aS othetwise provided in these
•''4
Rules or any other rnles specially made in this behalf recruitment to any
service or post shall be made by direct recruitment which may be either by
competitive examination or by selection or by prQmotion which may be
either by selection or 011 the basis of seniority-cum-merit. T71e methods of
recrnitment and qualification shall be as specified in the rnle of recrnitment E
specially made in that behalf" This part of General Rule 3 provides for
recruitment by way of promotion either by selection or on the basis of
~,,..,
seniority-cum-merit as specified in the said Rules of recruitment specially
made. Further the opening words of clause (1) "Except as otherwise
provided in these Rules or a11y other Rules specially made" give a clue that
the special rules would govern and regulate the method of recruitment F
including promotion by way of sel~~tion. Further. Rule 4 of the General
Rules which lays down the procedure of appointment contains Sub-Rule 2
which reads as under:

"4. Procedure of. appointment - subject to the provisions of G
these rules, appointrpent to any service or post shall be made -

xx xx xx

(2) in the case of recruitment by promotion - (a) if it is.to a
post to be filled by promotion by selection, by selection of a H
\
398 SUPREME COURT REPORTS [1991) SUPP. 1 S. C.R.

A person, on the basis of merit and suitability in all respects to
discharges the duties of the post with due regard to seniority
from among persons eligible for promotion.

(b) if it is to a post other than that referred to in sub-clause (a)
· by selection of a person on the basis of seniority-cum-merit,
B that is, seniority subject to fi~ness of th_e candidate to discharge
the duties of the post, from among persons eligible for promo-
tion."

(emphasis supplied)'

C Though Rule 3(2) of the General Rules is inserted later, the above
mentioned Rules remain undisturbed and they co-exist. They provide for
recruitment and promotion by selection to certain categories of posts and
for others on the basis of seniority-cum-merit. From a combined reading of
these provisions of General Rules it follows that recruitment to ·any service
by promotion as regulated by Special Rules can he by way of selection.
D Then the question is whether Rule 3(2) of the Ge.neral Rules which is
introduced in 1982 particularly providing the method of promotion by
selection to the post of heads and additional heads of departments has
altogether dispensed with the promotion by selection to all other posts and
whether, the non-obstante clause in this rule, in these circumstances can be
E interpreted as to have the overriding effect as contended by the learned
counsel for the respondents. The non·obstante clause is sometimes ap-
pended to a· section or a rule ·in the beginning with a view to give the
enacting part of that section or rule in case of conflict, an overriding effect
over the provisions or act mentioned in that clause. Such a clause is
usually used in the provision to indicate that the said provision should
F prevail despite anything to the contrary in the provision mentioned in such
non·obstante clause. But it has to be noted at this stage that we are con·
cerned with the enforceability of special law on the subject inspite of the
general law. In Maxwell on the /11terpretatio11 of Statutes, Eleventh Edition
at page 168, this principle of law is stated as under:

G "A general'later law does not abrogate an earlier special one by
mere implication. Generalia specialibus non derogant, or, in
other words," where there are general words in a later Act
capable of reasonable and sensible application without extend-
ing them to subjects specially dealt with by earlier legislation,
you are not to hold that earlier and special legislation indirect-
H ly repealed, altered, or derogated from merely by force of such
\ RAGHUNAIB v. SfATE[ REDDY,J.) 399
I
.: general words, without any indication of a particular intention A
~ to do so. In such cases it is presumed to have only general
cases in view, and not particular cases which have been already
otherwise provided for by the special Act." ·
In Maharaja Pratap Singh Bahadur v. Thakur Manmohan Dey and
ors. ,A.IR 1966 S.C. ~9~1, applying this principle it is held that general law B
does not abrogate earlier special law by mere implication. In Eileen Louise
Nicoole v. John Winter Nicolle, [1992] 1 AC 284, Lord Phillimore observed
_t
--+ as under:
"It is a sound principle of all jurisprudence that a prior par-
ticular law is not easily .to be held to be abrogated by a c
posterior law, expressed in general terms. and by the apparent
generality of its language applicable to and covering a number
· of cases, of which the particular law is but one. This, as a
matter of jurisprudence, as understood in England, has been
laid down in a great number of cases, whether the prior law be
an express statute, or be the µnderlying common or customary D
r ...... law of the country. Where general words in a later Act are
capable of reasonable and sensible application without extend-
ing them to subjects specially dealt with by earlier legislation,
that earlier and special legislation is not to be held indirectly
repealed, altered, or derogated from merely by force of such
general words, without any indication of a particular intention E
to do so."

..-'r. Inlustiniane Augusto De Piedade Bamto v.Antonio Vicente Da Fon-
seca and others etc., [1979) 3 SCC 47, this Court observed that A law which
is essentially general in nature may contain special provisions on certain F
~ matters and in respect of these matters it would be classified as a special
law. Therefore unless the special law is abrogated by express repeal or by
making provisions which are wholly inconsistent with it, the special law
cannot be held to have been abrogated by mere implication.
I have already noted that even in the General Rules the promotion by G
selection is provided for and if there are any special rules in that. regard
--f they are not abrogated except by an express repeal.

I shall now examine whether the interpretation of non-obstante ·
clause in Rule 3(2) of the General Rules as given by the Tribunal is war-
ranted. The Tribunal has held that the non-obstante clause which was H
400 SUPREME COURT REPORTS (1991) SUPP. 1 S. C. J\ <
.
A int.roduced in the Generai Rules clearly indicates'the intention to supersede '
the special law. The Tribunal has also noted even a later general law
provision can override earlier special law if it clearly indicates the intention
to supersede the special law. As a proposition oflaw one cannot dispute this
part of the finding butI am not able to agree with the fmding of the Tribunal
that thenon-obstante clause in Rule 3(2) clearly abrogates earlier special law.
B. .

This very question was considered by Karnataka High Court in
Muniswa11iy v. Superintendent of Police, ILR 1986 Kamataka 344 (Vol. 36).
In that case also the same General Rules and particularly Rule 3(2) in-
serted later came up for consideration. The Special Rules were that of
C Karnataka State Police State Recruitment Rules, 1967. The Director
General of Police issued a circular for the purpose of recruitment of Head
Constables on purely seniority-cum-merit basis. It was contended that the
posts of the Head Constables have to be filled up by promotion by selec-
tion as provided in the Special Rules and Rule 3(2) of the General Rules
cannot have. an overriding effect inspite of a non-obstante clause. The .
D Division Bench of the Karnataka High Court held that Sub-rule (2) of Rule
(3) which is an amendment to the General Rules cannot be treated as an
amendment to the Special Police Rules and that Rule 3(2) cannot be read
as amending all other special rules of recruitment of all other department
of Government in general. It also further observed that this amendment to
E the General Rules must be read as subordinate to the application of Rules
declared by Rule 1(3) of the Rules and cannot be read as enlarging the
scope. This judgment rendered by the High Court in the year 1986 has
become final. The fact that the State did not appeal or repeal the Special
Rules suitably in spite of the decision clinchingly shows that it accepted this
position.
F
In Aswini Kumar Ghosh and Another v. Arabinda Bose and Another,
(1953) SCR 1, it was observed as wider:

"It should first be ascertained what the enacting part of the
section provides on a fair construction of the words used ac-
cording to their natural and ordinary meaning, and the non
G
obstante clause is to be understood as operating to set aside as
no longer valid anything contained in relevant existing laws
which is inconsistent with the new enactment."

It was further held that:
H
RAGHUNATH v. SfATE[REDDY,J.j 401

"Nor can we read the non obstante clause as specifically A
repealing only the particular provisions which the learned
Judges below have been at pains to pick out from the Bar
Councils Act and the Original Side Rules of the Calcutta and
Bombay High Courts. If, as we have pointed out, the enacting
part of section 2 covers all Advocates of the Supreme Court,
the non obstante clause can reasonably be read as overriding B
"anything contained" in any relevant existing law which is in-
consistent with the new enactment, although the draftsman ap-
pears to have had primarily in his mind a particular type of law
as conflicting with the new Act. The enacting part of a statute
must, where it is clear, be taken to control the non obstante
clause where both cannot be read hannoniously; for, even apart
c
from such clause, a later law abrogates earlier laws clearly incon-
sistent with it. Posteriors leges priores contrarias abrogant
(Broome's Legal Maxims, 10th Edn., p.347)."

(emphasis supplied) D
"( In The Dominion of India (Now the Union of India) 011d another v.
Shrinbai A. Irani and another, AIR 1954 S.C. 596, it was observed as under:

"While recognising the force of this ar:gument it is however
necessary to observe that although ordinarily there should be a E
close approximation between the non-obstante clause and the
operative part of the section, the non-obstante clause need not
necessarily and always be co-extensive with the operative part,
so as to have the effect of cutting down the clear terms of an
enactment. If the words of the enactment are clear and are
capable of only one interpretation on a plain and grammatical F
constroction of the words thereof a non- obstante clause cannot
cut down the constroction and restrict the scope of its operation.
In such cases the non-obstante clause has to be read as clarify-
ing the whole position and must be understood to have been
incorporated in the enactment by the Legislature by way of G
abundant caution and not by way of limiting the ambit and
scope of the operative part of the enactment".

(emphasis supplied)

In Union of India and Another. v. G.M. Kokil and 0 hers. {1984}
H
402 SUPREME COURT REPORTS (1991) SUPP. 1 S. C.R.

A Suppl. SCR 196, it was observed as under:
"It is well-known that a non obstante clause is a legislative
device which is usually employed to give overriding effect to
certain provisions over some contrary provisions that may be
found either in the same enactment or some other enactment,
B that is to say, to avoid the operation and effect of all contrary
provisions."

In Chandavarkar Sita Ratna Rao v. Asha/ata S. Guram, [1986) 4 SCC
447, the scope of non-obstante clause is explained in the following words:
" A clause beginning with the exJ>ression "notwithstanding any-
c thing contained in this Act or in some particular provision in
the Act or in some particular Act or in any· law for the time
being in force, or in any contract" is more often than not ap-
pended to a section in the beginning with a view to give the
enacting part of the section in case of conflict an overriding
effect over the provision of the Act or the contract mentioned
D in the non obstante clause. It is equivalent to saying that in
spite of the provision of the Act or any other Act mentioned in
the non obstante clause or any contract or document men-
tioned the enactment following it will have its full operation or
that the provisions embraced in the non obstante clause would
not be an impediment for an operation of the enactment."
E On a conspectus of the above authorities it emerges that the non-
obstante clause is appended to a provision with a view to give the enacting
part of the provision an overriding effect in case of a conflict. But the
non-obstante clause need not necessarily and always be co-extensive with
the operative part so as to have the effect of cutting down the clear terms
of an enactment and if the words of the enactment are clear and are
F capable of a clear interpretation on a ·plain and grammatical construction
of the words the non-obstante clause cannot cut down the construction
and restrict the scope of its operation~ In such cases the non-obstante
clause has to be read as clarifying the whole position and must be under-
stood to have been incorporated in the enactment by the Legislature by
way of abundant caution and not by way of limiting the ambit and scope
G of the Special Rules. · . '

Further, the influence of a non-obstante clause has to be considered
on the basis of the context also in which it is used. In State of West Bengal
v. Union of India, (1964) 1SCR371, it is observed as under:

H "The Court must ascertain the intention of the legislature by
RAGHUNATH v. SfA'IE(REDDY,J.) 403

'A
directing its attention not merely to the clauses to be construed
but to the entire statute; it must compare the clause .with the
other parts of the law and the setting in which the clause to be
interpreted occurs."

It is also well-settled that the Court should examine every word of a
statute in its context and to use context in its widest sense. In Reserve Bank B
of India etc. v. Peerless Genrra/ Finance and investment Co.Ltd. & Ors.,
[1987) 1 sec 424, it is observed that "That interpretation is best which
makes the textual interpretation match the contextual". In this case, Chin-
napa Reddy, J. noting the importance of the context in which every word is
used in the matter of interpretation of statutes held thus:

" Interpretation must depend on the text and the context. They
c
are the bases of interpretation. One may well say if the text is
the texture, context is what gives the colour. Neither can be
ignored. Both are important. That interpretation is best which
makes the textual interpretation match the contextual. A
statute is best interprete.d when Wf; know why it was enacted. D
With this knowledge, the statute must be read, first as a whole
and then section by section, clause by clause, phrase by phrase
and word by word. If a statute is looked at, in the context of its
enactment, with the glasses of the statute-maker, provided by
such context, its scheme, the .sections, clauses, phrases and
words may take colour arid appear different than when the E
statute is looked at without the glasses provided by the context.
With these glasses we must look at the Act as a whole and
discover what each section, each clause, each phrase and each
word is meant and designed to say as to fit into the scheme of
the entire Act. No part of a statute and no word of a statute
can be construed in isolation. Statutes have to be construed so F
that every word has a place and everything is in its place".

If we examine the scope of Rule 3(2) particularly along with other
General Rules, the context in which Rule 3(2) is made is very clear. It is
not enacted to supersede the Special Rules.
G
As already noted, there _should be a clear inconsistency between the
two enactments before giving an overriding effect to the 11011-obsta11te
clause but when the scope of the provisions of an earlier enactment is clear
the same cannot be cut down by resort to non-obstallte clause. In the
instant case we have noticed that even the General Rules of which Rule
H

\
404 SUPREME COURT REPORTS (1991) SUPP. 1 S. C.R.

A 3(2) forms a part provide for promotion by selection. As a matter of fact
Rules 1(3)(a) and 3(1) md 4 also provide for the enforceability of the
Special Rules . The very Rule 3 of the General Rules which provides for
recruitment also provides for promotion by selection and further lays down
that the methods of recruitment shall be as specified in the Special Rules, if
any. In this background if we examine the General Rules it becomes clear
B that the object of these Rules only is to provide broadly for recruitment to
services of all the departments,and they-are framed generally to covet
situations that are not covered by the Special Rules of any particular
department. In such a situation both the Rules including Rule 1(3)(a), ·
3(1)and 4 of general rules should be read together. If so read it becomes
C plain that there is no inconsistency and that amendment by inserting Rule
· 3(2) is only an amendment to the General Rules and it cannot be inter-
preted as to supersede the Special Rules. The Amendment also must be
read as being subject to Rules 1(3)(a), 3(1) and 4(2) of the General Rules
themselves. The amendment cannot. be read as abrogating all other Spe-
cial Rules in respect of all departments: In a given case where there are no
D Special Rules then naturally.the General Rules would be applicable. Just
because there is a nrm-obstante clause, in Rule 3(2) it cannot be inter-
preted that the said amendment to the General Rules though later in point
of time would abrogate the special rule the scope of which is very clear and
which co-exists particularly when no patent conflict or inconsistency can be
spelt out. As already noted Rules 1(3)(a), 3(1) and 4 of the General Rules
E .themselves provide for promotion by selection and for enforceability of the
Special Rules in that regard. Therefore there is no patent conflict or in~
consistency at all between the General and the Special Rules.

Shri P. Chidambaram, in this context, however, submitted that the
I
intention of the Legislature is to do away with promotion by selection and
F. instead of amending every special rule, the General Rule in the form of
Rule 3(2) is inserted and therefore by virtue of non- obstante clause all
other special rules governing the recruitment to all departments stand
abrogated. I am unable to agree. If such was the intention of the amend-
ment then I see no reason as to why even in the General Rules as noted
above the promotion by selection is recognised and provided for and these
G Rules remain unaffected. This is also clear from the fact that the Govern-
ment did not even appeal against the High Court decision rendered in
Muniswamy's case.
·Shri P. Chidambaram, however, further s'ubmitted that a pfain read-·
ing of Rule 3(2) which is later in point of time would clearly indicate that
H
RAGHUNATII v. STATE[DAYAL,J.) 405

the Special Rule providing for promotion by selection is repealed at least A
..,,,., by implication. There is no doubt that a later statute may repeal an earlier
one either expressly or by implication. In the instant case we .have already
noted that there is no express repeal of the Special Rule providing for
promotion by selection. The Courts have not favoured such repeal by im-
plication. On the other hand it is indicated by the courts that if earlier and
later statutes can reasonably be construed in such a way that both can be : B
given effect to, the same must be done. In Re Chance [1936) Ch. 266
Farewell, J. observed that "If it is possible it is my duty so to read the
~
-f section.....as not to effect an implied repeal of the earlier Act".

In Kunter v. Phillips [1891] 2 Q.B. U7 it is held that: "It is only when
the provisions of a later enactment are so inconsistent with or repugnant to c
the provisions of an earlier one then only the two cannot stand toge~her
and the earlier stands abrogated by the later". In Municipal Counci~ Palai v.
TJ. Joseph, AIR 1963 SC 1561, this Court has observed that there is a
presumption against a repeal by implication; and the reason of this rule is
based on the theory that the Legislature while enacting a law has a com-
D
..___, plete knowledge of the existing laws on the same subject matter and there-
fore, when it does not provide a repealing provision, it gives out an
intention not to repeal the existing legislation.

It is further observed that such a presumption can be rebutted and
repeal by necessary implication can be inferred only when the provisions of
the later Act are so inconsistent with or repugnant to the provisions of the
E
earlier Act, that the two cannot stand together.

_,;; ~
I am satisfied that there is no patent inconsistency between the
Generai and Special Rules but on the other hand they co-exist. Therefore,
there is no sco~e whatsoever to infer the repeal by implication as con-
tended by the learned counsel Shri. Chidambaram. F

In the result the appeal is allowed and the Government is directed to
consider the case of the appellant for promotion to the post of Deputy
Commissioner of Transport on the basis of promotion by selection, as·
provided in the Special Rules namely Karnataka General Service (Motor
Vehicles Branch) (Recruitment) Rules, 1976. In the circumstances of the G
~ case there will be no order as to costs.

YOGESHWAR DAYAL, J. I have had the pleasure of going through
the judgment prepared by my learned brother, Justice K.J. Reddy. How-
ever, with due respect, I regret I have not been able to persuade myself to
H
406 SUPREME COURT REPORTS (1991) SUPP. 1 S. C.R.

A agree to either his reasoning or the concIUsion. There is no quarrel that
general principle is that special law prevails over general law but the ~
learned Judge has failed to note that even there is an exception to such a
general law, namely - it is a later general law which prevails over the ,_
earlier special law if it clearly indicates the intention to supersede the
B special law.

This appeal by Special Leave has been fded by Sri R.S. Raghunath
against the order of the Karnataka Administrative Tribunal, Bangalore,
dated 9th August, 1990. Before the Tribunal the appellant sought a dec-
laration that the promotion of Shri I.K. Devaiah, respondent No. 2 here'm,
was illegal and to direct the respondent No. 1 to consider the case of the
C appellant for promotion to the cadre of Deputy Transport Commissioner
with all consequential benefits. The Tribunal dismissed the application
filed by the appellant. The Tribunal was called upon to construe Rule 3(2)
of the Kamataka Civil Services (General Recruitment) Rules, 1977 as
amended in June, 1982 (hereinafter referred to as "the General Rules').
The Tribuna~ after considering the general Rules took the view that the
D non-obstante clause in Rule 3(2) of the General Rules which was intro-
duced after framing of the Karnataka General Service (Motor Vehicles
Branch) (Recruitment) Rules, 1976 (in short 'the Special Rules') clearly
indicates the intention to supersede the special law. The Tribunal took
the view that the general principle that the special law prevails over the
general law has one exception and that is a later general law prevails over
E earlier special law if it clearly indicates the intention to supersede the
special law. The Tribunal held that a non-obstante clause in Rule 3(2) of
the General Rules, which was enacted after the Special Rules, clearly in-
dicates the intention to supersede the special law. The controversy rises
in the following circumstances.

F The Special Rules came into force on or about 10th December, 1976
on the publication of the same in the Karnataka Gazette (Extraordinary).
It consisted of only two Rules-(1) and (II). The first Rule gave the 'title
and commencement' and the second Rule dealt with the 'method of
recruitment and minimum qualifications'. There was a schedule attached
to Rule II. In the schedule for the post specified in column 1 thereof the
G method of recruitment and minimum qualification 'were specified in cor-
responding entries in columns 2 and 3 thereof. It dealt with roughly 35
categories of posts. I may mention that there was only one post, namely -
the post of Deputy Transport Commissioner for which the method of
recruitment was by selection from the cadre of Regional Transport Of-
ficers who must have put in not less than five years of service in that cadre.
H
RAGHUNATH v. SfAlE[DAYAL,,J.] 407

For all the rest of the posts in the schedule there was no provision for A
recruitment by way of promotion by selection. For all the posts the method
of recruitment was either by promotion or by deputation or "by direct
recruitment, or both by direct recruitment .and promotion or by merely
posting a suitable officer or by direct recruitment through employment
exchange etc. The only recruitment to the post of Deputy Transport Com-
missioner was by method of promotion by selection. B
At the time when the aforesaid Special Rules were enacted the Kar-
-~ nataka State Civil Services (General Recruitment ) Rules, 1957 (in short
the General Rules of 1957 ) were in operation which were repelled by the
General Rules. So long as the General Rules of 1957 continued the Special
Rules continued to govern the method of recruitment of the posts as C
specified in the schedule attached to the said Special Rules.

The General Rules of 1957, as stated earlier, were repelled by the
General RUies which came into force on 25th June, 1977. Rule 1(3)(a) of
the General Rules provided thus: -
D
"1.(3) (a) These rules shall apply to recruitment to all State
Services and to all posts in connection with the affairs of the
State of Karnataka and tb members of all State Civil Seryices
and to the holders of posts whether temporary or permanent
except to the extent otherwise expressly provided -
E
(i) by or under any law for the time being in force; or

(ii) in respect of any member of such service by a contract
Qr agreement subsisting between such member and the
State Government".
F
It is thus clear from the provision of Rule 1(3)(a) that the Ge11eral
Rules we..e applicable for all purposes to members of all State Civil Ser-
vices including the Motor Vehicles Branch except to the extent otherwise
expressly provided by the Special Rules. The Special Rules, as mentioned
earlier, dealt with the method of recruitment and qualification for the
Motor Vehicles Branch and so far as the post of Deputy Transport Com- G
missioner was concerned, the method of recruitment was "promotion by
selection". The Special Rules dealt with nothing else. It is also clear from
Rule 1(3) of the General Rules itself as to what is the scope of its ap-
plicability. It was applicable to all posts except to the extent otherwise
expressly provided for by the Special Rules. Rule 3(1) of the General
H
408 SUPREME COURT REPORTS (1991) SUPP. 1 S. C.R.

A Rules, before the insertion of sub-rule (2), reads as follows: -
"3. Method of recruitment - (1) Except as otherwise provided
in these rules or any other rules specially made in this behalf,
recruitment to any service or post shall be made by direct
recruitment which may be either by competitive examination or
B by selection, or by promotion which may be either by selection
or on the basis of seniority-cum-merit. The methods of recruit-
ment and qualifications· shall be as specified in the rules of
recruitment specially made in that behalf: t---
Provided that in respect of direct recruitment to any service or
c post when the method of recruitment is not specified in the
rules of recruitment specially made, the method of recruitment
shall be.by selection after an interview by the Commission, the
Advisory or Selection Committee or the Appointing Authority
as the case may be.
D Provided further that no person shall be eligible for promotion
unless he has satisfactorily completed the period of probation
or officiation, as the case may be, in the post held by him."

The substantive part of Rule 3(1) described various methods of
recruitment but stated that the methods of recruitment and qualifications
E shall be as specified in the rules of recruitment specially made in that
behalf. The first proviso described that when in the Special Rules for
recruitment no provision is made for direct recruitment, the method of
recruitment shall be by selection after an interview by the Commission, the
Advisory or Selection Committee to the Appointing Authority, as the case Y'-
may be. The second proviso to Rule 3(1) contemplated that no person
F shall be eligible for promotion unless he has satisfied three completed
years of probation or officiation, as the case may ·be, in the post held by
him. The serond proviso is by way of abundant caution in view of the
Karnataka Civil Services (Probation) Rules, 1977 (hereinafter referred to
as 'the Probation Rules') because of Probation ~ules contemplated that
the period of probation shall be 'as may be provided for in the rules of
G recruitment specially made for any service or post, which shall not be less
than two years'. The Probation Rules also contemplated declaration of +--
satisfactory completion of probation at the end pf the prescribed period of
probation as extended or reduced by the appointing authority. It may be
useful to note that Rule 19 of the General Rules also dealt with probation
H and appointments by promotion. It is clear from reading of Rules 1, 2 and
RAGHUNATH v. SI'ATE [DAYAL, J.] 409

3, as originally enacted, of the General Rules that so far as the Sp~cial A
Rules expressly provided to any particular branch of the State Service that
was to prevail over the General Rules. Rule 3A, as amended, provided for
qualification in respect of ex-servicemen, irrespective of the provisions of
the Special Rules. Rule 4 provided the procedure of appointment. It also
provided that if the appointment is by way of selection, how a selection has
to be co~ducted and if the recruitment is by way of promotion, how it h~s B
to be done. Rule 5 provided for disqualification for appointment. Rule 6
provided the age limit for appointment. Rule 8 provided for reservation of
appointments for scheduled castes, scheduled tribes, backward tribes etc.
Rule 9 contained provision for ex-servicemen and physically handicapped
notwithstanding anything contained in the Special Rules. Rule 10 con-
templated conditions relating to suitability and certificates of character. c
Rule 11 provided for procedure how the applications have to be made by
the Government servants for recruitments. Rule 16 provided for relaxation
notwithstanding the provisions contained in the General Rules or the Spe-
cial Rules. Rule 16 A provided for appointment by transfer. Rule 17 dealt
with appointment by direct recruitment or by promotion in certain cases
notwithstanding anything contained in the General or Special Rules. All D
these Rules are applicable to all the posts except to the extent as con-
templated by Rule1(3) of the General Rules. This was the position at the
time of enactment of General Rules in 1977.

It appears that Rule 3 of tJte General Rules was amended and sub-
rule (2) was added to Rule 3. Rule 3(2) of the General Rules, so added in ~E
June,1982,readsthus:

"3(2). Notwithstanding anything contained in these rules or in
the rules of recruitment specially made in respect of any ser-
vice or post-
F
(a) the promotion to the post of Head of Department of the
post of an Additional Head of Department, if it is in a
grade equivalent to that of the Head of Department
concerned, shall be by selection:

Provided that for the purpose of promotion by selec-
G
tion, the number of persons to be considered shall be
such number of persons eligible for promotion in the
order of seniority, as is equal to five times the number
of vacancies to be filled.
H
410 SUPREME COURT REPORTS (1991) SUPP. 1 S. C.R.

A (b) the promotion to all other posts shall be on the basis of
seniority-cum-merit".

We are really concerned with the scope of Rule 3(2) of the General
Rules for proper decision of this case. Both the General Rules and the
Special Rules have been framed by the Government of Karnataka in exer-
B cise of powers under Article 309 of the Constitutjon of India.
It is clear from Rule 1(3)(a) of the General Rules that the General
Rules apply to recruitment to all State Services and to all posts in connec-
tion with the affairs of the State. A perusal of different rules in the General
Rules makes it clear that the general provisions which apply to recruitment
C to all posts under the Government are specified in those Rules instead of
repeating them in each and every Special Rules of recruitment relating to
different departments. For example, provisions relating to age limit for
recruitment, disqualification for recruitment, joining time etc. should find
place in Special Rules and normally they should be uniform for all
categories of posts. Instead of repeating them in all Special Rules of each
D department they have been put in one set of rules known as the General
Rules. It would be impossible to limit the application of the General Rules
only for recruitment to posts for which no Special Rules have been made.
If that was so, what are the provisions relating to disqualification, age limit,
joining time etc. for posts for which Special Rules governing of recruitment
have been made ? There are no other rules governing the subject except
E the General Rules.
By the wording of Rule 3(2) of the General Rules it is clear that the
Government took conscious and deliberate policy decision and gave a
mandate to make only posts of Head of Departments, Additional Head of
Departments as selection posts and all other post.s on promotion will be
F filled by the criterion of "seniority-cum-merit".

To give effect to that policy decision instead of amending every Spe-
cial Rules of recruitment relating to different State Civil Services, the
Government made a provision in the General Rules by incorporating a
non-obstante clause stating that it would apply to all services and posts
G notwithstanding the provisions in the General Rules or in the Special Rules
of the State. This aspect is absolutely clear by a mere reading of Rule 3(2)
of the General Rules.

In the case of Maharaja Pratap Singh Bahadur v. Man Mohan Dev,
AIR 1966 SC 1931, the Supreme Court approved the following quotation
H from Ma>..-well on Interpretation of Statute: -
RAGHUNAIB v. SfA1E(DAYAL,J.) 411

"A general later law does not abrogate an earlier special one by A
_,...(_ mere implication. Generalia specialibus non derogant, or, in
other words, "where there are general words in a later Act
capable of reasonable and sensible application without extend-
ing them to subjects specially dealt with by earlier legislation,
you are not to hold that earlier and special legislation indirect-
ly repealed, altered, or derogated from merely by force of such B
general words, without any indication of a particular intention
to do so." In such cases it is presumed to have only general
cases in view, and not particular cases which have been already
otherwise provided for by the special Act."
It is stfted therein that for the general principle that the special law C
prevails over general law there is one exception and that is a later general
law prevails over earlier special law if it clearly indicates the intention to
supersede the special law. The non-obstante clause introduced by amend-
ing Rule 3 of the General Rules by adding Rule 3(2) which was enacted
after the Special Rules indicates the clear intention to supersede the Spe-
cial Law to the extent that for the posts which are not Head of the Depart- D
ments or Additional Head of Departments the promotion, if provided for
by way of selection, would mean on the basis of seniority-cum-merit and
not on the basis of merit only.
As I have noticed earlier if we look at the Special Law it contained
various methods of recruitment to about 35 posts mentioned in the
Schedule annexed thereto but there is only one post for which the promo- E
tion was proposed by selection. Surely it would have been flimsy way of
drafting if one particular clause of a particular Special Law was sought to
be individually repelled by enacting a repealing clause for that purpose. To
get over that the non-obstante clause is introduced later on by the same
authority which enacted both the General and Special Laws to give its
latest mandate. The latest mandate cannot be ignored. F

Rule 1(3) of the General Rules which accepted the applicability of
Special Rules is itself a part of General Rules and the non-obstante clause
is not merely to what is mentioned to the contrary in the Special Rules but
it is also notwithstanding anything contained in the General Rules itself..
G
·-f In the present case the respondent No. 2 herein was promoted after
the amendment of Rule 3 of the General Rules and there is no dispute
about his recruitment by way of promotion on the basis of seniority-cum-
merit and that the earlier Special Rules which contemplated the promotion
hv s.e\ection were not followed in view of the latest intention dearly given H
412 SUPREME COURT REPORTS (1991) SUPP. 1 ~-C.R.

A by a positive mandate.
The learned counsel for the appellant strongly placed reliance on the
decision of the Karnataka High Court in the case of Muniswamy v. Superin-
tendent of Police, dated 18th July, 1986 (Annexure 'F pages 66 to 108 of the
. paper-book). That decision dealt with the General Rules and the Special
B Rules in re.lation to Karnataka State Police Service (Recruitment)' Rules,.
1967.
We have to construe the meaning of Clause 3(2) for ascertaining the
object and purpose which the legislature had in view in enacting the said
provision and the context thereof. It appears to me that the Special Rules
C for recruitment to some of the services had been in force providing a
particular method of either selection or promotion. It appears that be-
cause of the experience the Government had of its working, it was thought
proper to change this policy, namely- instead of providing selection on the
basis of merit to every post, in certain posts, it thought it fit to give due
weightage to seniority and merit instead of having the 'best'. The selection
D of 'best' very often has an element of chance which may not be very con-
ducive to proper climate and harmony in service. It appears that because
of that experience the rule making authority thought it fit that the process
of promotion by selection should be confined only to top posts and for rest
of the posts the method should be promotion by adopting the principle .of
seniority-cum-merit. I find that there is a clear mandate of latest intention
E of the rule making authority contained in Rule 3(2) of the General Rules
and this must be respected by the Court. The Courts are not expert body
' in knowing what is the best method for selection and to assume that the
purest method must be found by the Court and implemented even by
violation of the Rule, will not be sound rtJ{e of construction of statute.

F I am afraid I have not been able to persuade myself to agree with the
reasoning of the learned Division Bench in the aforesaid case of Munis-
wamy v. Superintendent of Police. ·

The learned Division Bench had restricted the scope of Rule 3(2) to
only such officers whose "service or post is not regulated by any Special
G Rules, then and then only the posts of Head of Departments of Govern-
ment as defined in 1982 Rules had to be filled by promotion by selection
and all other posts in such :pepartments have to be filled by promotion on
seniority-cum-merit basis". The Division Bench also examined the merits
and demerits of various forms of selection at great length and took the view
H in paragraph 41 of the judgment as under:
"We were shocked and surprised when the learned Govern- ·
RAGHUNATII v. SfATE (DAYAL, J. ) 413

ment Advocate submitted before us that he was supporting the A
stand urged by Sri Bhat and the circular issued by the Director
under instructions from Government. We have no doubt that
the Government had not really reflected on the untenable
stand it was urging before this Court which, if accepted would
have meant death knell to .efficiency in the services of the B
State."

I am surprised with this type of approach. It is not the function of
the Court to examine the efficacy of one form of seleetion or the other. It
is for the recruiting authority, namely the Government to examine it and
enforce it in the way it like. To use such an expression "death knell to c
efficiency" really gives the mind of the Court that it wants to enforce the
particular policy even though the latest mandate is for change of the policy
in the name of efficiency. This type of reasoning really ignores the specific
provision of the non-obstante clause applying to even "in the rules of ·
recruitment specially made in respect of any service or post".
D
In Ajay Kumar Banerjee and others v. Union of India and others,
[1984] 3 SCC 127 at page 153 Sabyasachi ·Mukharji, J. (as His Lordship
then was) observed thus: - ·

"As mentioned herein before if the scheme was held to be
valid, then the question what is the general law and what is the E
special law and which law in case of conflict would prevail
would have arisen and that would have necessitated the ap-
plication of the principle "Generalia specialibus non derogant".
The general rule to be followed in case of conflict between the
two statutes is that the later abrogates the earlier one. In other
words, a prior special law would yield to a later general law, if F
either of the two following conditions is satisfied.

(i) The two are inconsistent with each other.

(ii) There is some express reference in the later to the earlier enact-
ment. G

If either of these two conditions is fulfilled, the later law, even
though general, would prevail".

It is thus clear that both the conditions mentioned by Mukharji, J., H
414 SUPREME COURT REPORTS (1991) SUPP. 1 S. C.R.

A speaking for the Bench are fulfilled. In this case whether the promotion
has to be by the method of selection or simplicitor promotion on the basis
of seniority-cum-merit, is the contest. The Special Law contemplated
promotion by selection whereas the later law contemplates promotion by
the method of seniority-cum-merit. The two are inconsistent with each
other. This fulfills the first condition. So far as the second condition is
B concerned ther~ is an express reference in the later general law "in the
earlier enactment". But as per the proposition of Mukharj~ J., if either of
the two conditions are fulfilled the later law, even though general, would
prevail. Surely the provision of recruitment contemplated in the Special
Police Rules is inconsistent with the latest general provision applicable to
all posts in Karnataka. In the present case the later general law prevails
C over the earlier special law because the non-obstante clause specifically
mentions its efficacy inspite of the Special Law. It was for the legislature to
choose the method of indicate its intention. The Courts should not defeat
their intention by overlooking it. The respondent No. 2 has been selected
for promotion by following the General Rules amending the Special Rules
and I find it ~as strictly in accordance with law. I am, therefore, of the
D considered view that the appeal de5el"Ves to be dismissed with parties to
bear their own costs.

G.N. Appeal allowed.

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