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New Delhi,. DAted the .2.:7 June, 1926.
OFF T.7)E, •
Premature retirement of government serirents - -Review and Repres•antati on C
for
revieming.the cases of gaycY:tted cftlieerS
worlLing ln urCer tbe Ylins'xissilienartments.
whosrl appnintrents are n2t ref to the Appo:_ntnnts Co=ittee 02 the CabiWet9 and for cousiciering their represnte.tions against the cr_der s of pre matur e etir eme nt--C ompo si t i on of
CONFIrrilLL
E0.25013 / 15/ 26-7:stt . • ) Government of •Indla :
Ministry of PeT5onnell Publie Grievmloes and Pensions
Department of Personnel and Training
Subj ect:
Attention of ala the Ministries/Departments is invited to the Ministry of Home Affairs (ropartment
oC
Personnel & .cRs; 0.M. Eo.25013/13/77-Bstt.(A) dated the
Sth Uovemberl 1077 and the subsequent Office Memoranda issued from uime to time aaying down the compo:lition of, the review and the Rep-a-,entation Committees for reviewing the cascs-of gazetted of.'icors worl:ing in or under the MinisciesiDepartments1 whose a71-ctmcnts are nct referable to the ..;.pnointments G3rmittee cf the C .inet1 and for considering the represer:-.ations of these officers. Consequent yroon the re-orgarisatin -t the various -!.iniscies/Departrrients and change in their
nemel functions
-End comuesitirn, the constltukion -.f the r:cmmihtees, mhieh Nould ravi.-2-97 tue Ca,S05
of the aforesaid off:cars as also .:f iiha Co-amittees, -hich would consiOer the representabion
=f =inch or-:=12c.= a:einst -tm.n oraer5 of T.r2oraturo retire-
ren4), ha.c.;2 be:n ncCind wfth the anviroval of t'se Cabinet
66. 7 etn.Ty 1::207,:n7: :I n -.::,- nW n C provici ons c ontain3d at
:),-m 2 in An ,e.n)I,x II to the Depaptment of Personnel ac A.R . : ,':. Po , 25,712/ ',..) :7-2 st.t . (A ) dated 5.1.1913 as indicated
: r tho :;t4a,' ‘ent ono-107.2d. In rr.spoet of ",azestted
7- fice: 7 7 pl" L. ii.2; 1 1 0 n) .T1 0t 4:10 14i nistriesfl=epartments
I'Lste: ' n :Jolt' 'n 2 o2 . he sta'cmcn1 the composition of
-,-,,! n '-‘)--_na Of .,:tittee anci j--:-Le (nnmit-coe to cor 5i dor
70Fr 0 :-- DI 'flti onn 15 :Mown -:.n columns 3 & 4 respectivelY.
, :aa partf eular kdditionEl Eecretaxy/Joint Secretary in a W...1-,J str7i3JenartT,ent i w'rlo iaould f uheti on as a nominee of tie C:b:_:_r- t Sect 3 t"): ry 'I will 0: chc- sell by the Se.CT '') c:ary, of
tne. l'ilris,try;)epartmc,nt C CP C. :2::::3 , 7.1., caoe of sLy doubt
. In re r,: r rd t o c cmp0.-:iti on c r t.ie -2.--rirar7fRcprecertati on
i Commie or the (.; e_T- , rr:-.4c, Sect 0 tr_rv 1 s rir ,-. rp- a ..,- -arence
i nay De maae yo u c ape.rumenu o. ,_..-nAL.,..„. ,....u. 1_, ,_,...7g:
t ana T. , u JO UL1 - _oin,L, ,_,,,_r,,,,a_lal., -0 ,,,au .„. _ pos4 tion can
. :#7.- e"LritieL by this D3bartment and Secrct ary (Persnnnel)
0:icy:, noilii2te s senior officer for 4:ne turposa., if it
it,ocomes netessar7. ....2/-
2. In regard to the categories of government
servants mentioned at item 3 in Lfpendix.II to the Department of Personnel dc A.R. 0.M. No.26013/111/77- Estt.(L) dated 5,1..19701 the M:Inistrs/Dor,artments may themselves constitute the apprbpriate Oommittees on similar lines.
(11
SITARAMA., UNDER SECEETARY TO THE GOVT. OF TNDIA.
To
or India. Ail Ministries/Departments of the Government
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IMMEDIATE.
CoNFIDENTIAL
No.25013/30/85-Estt.(A) Gcvernment of India/Bharat 5arkar
Ministry of Personnel & Training, Administrative ReforMs and Public Grievances and Pension (Department of Personnel & TrainingWKarmik
Aux Prashikshan Vibhag)
New Delhilthe 1th August 19E35.!
OFFICE MEMORANDUIvl
Subject:- Prema.ture retirement of Central Government servants G s relating t o action where integrity of the Governmen-t servant s oubtf ul
Consolidated Insttuctions relating to premature retirement of Central government servants with a. view to strengthening of administration were issuea. under the Ministry pf Home Affairs (Department of Personnel and Administrative Reforms) Office Memorandum No.25013/14/77- Es't-t.(A) dated the 5th January, 197B. Para II (3) (a) of that 0,14. lays down that Government employe.es whose inte.grity is doubtful will be retired. This guideline has not, hoWeve.lr, been adequately followed by the appointing- authorities. With the. Government" s commitment to provide clean adninistra- tion, it is essential that the pOwer for premature retirement in public interest' is availed of to weed out ail those ea-m-iloyees whose integrity is doubtful, with due regard. to the appropriate procedure laid down for action for premature reti-rement. Further instructions to supplement those conveyed under: the Office Memorandum referred to above Are now being issued to assist Ministries/Departments in taking action for Drematt2re retirement ef Government employees whose integrity i.D;doubtful.
Perusal a?. entire serv.f.ce record:
2. Para II (3) (0 of the Office Memcrancicm clatea the Sth J aaaary, 1973 Iays down -that tby.; entire sznice record of. an. Off. irb should 1::e considered at the time cf review. Cons±deration has ordinarily to bc..1 confined to the preceding 5 ye.ars or to the period in the highor..pozt: in case of ptomotion within the period of 5 years, only where, retirerM:nt is sought te be, made on grounds of ire:::foctiveress,.: There is no such stipulation however„ where tho employes is to The retired , on grounds eof (.9.oubtful integrity.
3. The term ' service rec ord' is all-embrasive and review shou la not hence c onf ined to the cc-asiderat ion of only the annual Confidential Remarks recorded on the officer. In the case of a number of ministries/Departments, Officers tale action for concluding contrArts, settling claims4, assessing taxes or duties payable etc. Doubts may
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have arisen re lating.. t o the bonaf ide nature of action talren by the off3..cer, :put -on account of inadequate proof,
rnay net have been possilDle to initiate action for a regular departmental anquiry, leading finally to a punishment ac: the nature that may find entry in the C.R. dossier of the officer. But the personal file of: the officer may have details of . the nature of. doubt that arose regarding the integrity of -the. officer and the result of •the pre.liminary investigation that was carried out. Matters f aund on the personal f i le of the of f ice r can and Should also, the re f ore , be placed before the Review Committee and not_ only the C dossier of the officer.
4. T.t is likely that each allegation that canes to no-tice against the integrity of the officer may ,have been. handled on a• separate file and that details thereaE may not be available on the personal file of the offi.cer, which, is confined only to estataislament matters, like inciements, promotions e leave , P . advance s etc . In such a! situation, well ahead of the meeting al. the Review Committee, the ministry/tepartrrent Will have to compile toge:Elher all the data in the separate files c.nd prepare, a comprehen- sive brief for the consideration of the Review COmrnittee.
5, There are a number of j-u.dic-I•al pronounceme.nts in support of the. instruction above :that :a total asSeESMent of
per.formarce of th.e Government. servant can be' made. There have also be-E...n observations that h-ave 'approved any measure by which the asse..soment by superiors, with an apcorturity to watch the work. and c.onduct of an officer, is taken :trio a.ccount while deciding pi-emature r.etirement. Un-lon: India vs. M.E.Reddy and another (AIR '1,930 - SC 563) the S upr.-eme C ourt Observed:: -
" It will indeed be di.fficult, if net impossible, to pra.ve by positive evidetce that:. a particular officer is aithauest.„ but those v.tho have had the. opportun.ity to watch the pen: orma.nce of the said of f ice r el ose qu.,..arters ai-e a position to know the nature and cha.racter not only Oil his perf.ormance but also of the renute..tion that he enjoys." In R.14. Butail vs. Union of India and another (1971) 2 S.C.R. 55, t.he observation was:
" It. may veal be that in spite of the work of the appellant being satis:Eactory„ as he_ c.laimed 'it was, there may have been other relev:ant factors, such ais the. histary cif the appellant.' s entire ser-v-iee and. Con-fidential reports throughout the period of the se:rvice, upon whic.h -the appr-cpriate authority may still decide to order .appollan-ti s retirement under P .R.56 ( j )" •
6. . or preparing a comprehensive brief on each officer, for. being placed be:fore tlte Re.-1/47-Lew Committee: each
M in stry/De p artrre nt may c on S ide r the., Sett ing up of an
internal Screening Committee. to assist the Reviewing Committee tr...‘onsisting to the extent. possible c:E those senior
• ..
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officers who have had occaSian to know about the work and conduct of the. officer proposed to be reviewed. Such Screening C ommit te s may be c on st...1.-bute d f or each dif fe re rrt rank or earth diffcrer.t functional areas as may be necessary or convenient. These may be set up as a standing arrangement and, a Screening Committee is not to be constituted aS a separate ad-hcc measure, only at the time when the case Of a particutar officer is taken up for consideration of prema- ture retirement.
Annual Confidential Remarks:
7. .Entries in the C.R, dossier of an officer wi.11 ef course fan-.: a very important pa.rt. o2 the .tatal service record taken .into c.onsideration while reviewin.g any proposal for premature retirement.. There. arez. however, certain mis.conctep- tions relating to the procedure t adopted in this behalf7 and: clarif .^..c e.ti. on s are be ing given be 1 Ow e.g ain based on judicial pronouncement S
8. The. general impression prevalent that the Review Ccrtni-ttee shall not take into accourtt any remark that has . not been C QIIII1U nic ate d to the of f icor, is n ot a self -re straint that should invarialDly hold good in all circ urn stance.s, Non- cornmunication of an adverse entry in regar.d to t_he doubtful integrit-y may not. be f a-tal in certain -c ircumetarces. The. Supreme e.,ourt ohserved...in the case Union of India vs. . .p ?I.E. Reddy and another, already referred to in pare 5 abave:-.
" Mr .Kri shnamurthy Iyer appearing f or Reddy Submitted that the order in-ipugned is pa.ssed ora ma-ter:Leas Which are non-existent' in EL S much as tihere are. no advErse reMarks against Reddy Who had a spotless career throughout -and if. such remarks would have. been made in his confidential report„ they should have been communicated to hi.m under the rule.s. This:argument, in cur opinion? appears to -.tr.?. based on a serious misconception, .„In the first place, 'under ,the various rules on the subject, it is nal: every a.dver.se entry or. remar...k. that has to be commu-nicated tO the orficer concerned. T he superior off leer may make er.t ain 'rem a-kts -bails as se ssirig the werk • and conduct of the subord4nate officer. base.d osn his p or s anal supervision or e ont act . S ome of the se re malts may be purely innocuous or may be connected. tlith general reputa- tion of honesty or integrity that a particular officer enjcivsa .
9.• Hoyete.ver, eve..n though Perldy2s case was refe.rred to tho case of Brij B'ehari Lai -c.,-se Fs:Itch Court of Madhya
Frac:lash (AIR 1981-SC-594) „ the Supreme Carte takina into account the. fact that certain adverse remarks had not been communicated, held the order under ER 56(j) as inva.lid„. The position that emerges, therefore, 3.6 that. in a particu- lw- case, while an odd adverse remark. that may net have been c on-runic ate d t o the of floor c otr erned, c ould be taken into account as part of. the total service r.ecord considered. by the...Review Committee, it would ncyt., as a matt-er of. C.oursot, be appropria-te to take into account adverse remarks which have not been conanunicated to -the _officer.
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The Supreme Court has also not accepted the contentionthat a remark of a general. nature, without basing it on a specific instances does not give an adequate opportunity for representation against it and should not, -therefore, be taken intp account. In the case R.L*Butall vs, Union of India, already reterred to in para 5 abovel it has been observed:-
u'The contention, therefore?, that the adverse remarks aid notcontain specific instances and were, therefore.„ contrary to' the rules!, cannot be sustained, Eoually unsustainable is the corollary that because ct the emission, the appellant could not make an adequate representa- tion and that, therefore', the confidential reports are vitiated."
10, Another point to be kept in view is that when an oVerall.assessment is made of:the record of a. go.Vcrnment servant, more than -ordinary value should be attaOhed to the confidential remarks pertaining to the years immediately preceding the review.. It is possible'that a government serVant having a somewhat erratic record in the earlv years of serviCe may have so greatly improved with the. passage of time that-.it=would be appropriate to continue him in service unto tha prescribed age of superannuation* Whatever value the confidential remarks of earlier yearsnay posses's: those pertaining to the later years immediately:preceding the review are of direct relevance and hence cf utmost importonce, This view has beene2trOed in the eaae of Brij Behar:1 Vs. High Court of Madhya Pradesh, referred to above and has been followed in J.D, Srivastava vs. State of Madhya Pradesh (AIR 1934 SC 630).'
11. The Department of Personnel e7LO.Tra.inna is aware
of the general tendency noticed among reporting/reviewing officers to desist from expressing their suspicions ogainst the integrity of an officer reported upon! \tibiae recording annual confidential remarks, The instructions at cresent in force relating to entries regarding the intearitv of an officer are being reviewed, In any ctses reliance should not be placed only on the C.R. dossier, but the entire service record including personal or,other .filos relating to the officer ahould be taken into account, wh3Y1 premature
retirement is under consideration, as already e'xolained in pares 3 to 6 abova.
Action should be in the public 4.114-pre'd
12. The Office Memorandum dated 5th January, 197B
referred to in .para 1 abovev has already Orawn attention to the rulings by the Supreme Court that principles of natural justice do not get attracted' in the context of the specific provisions in P.R., 56(j). This means that no opportunity to show cause against the proposed action of
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premature retirement is to be given -to the officer concerned. The order issued -to the officer has to specify the.t action. has been talcon in the public interest, as the form aPpended -to the Officer Memorandum dated 5th January, 197B makes the requirement abundantly clears Action taken should., in fact, be bonafide and in the public interest baSed upen relevant grounds and not be arbitrary or -actuated by malafides, Any contention that the action has been influ- ended by extraneous or irrelevant considerations., a.rbitrari- ness or malice will be closely inquired into by the Courts: and if the contention is upheld, the. order of premature .. retirement is liable to be struck down.. It Is, therefore, aletiolutely essential_ that Ministries/DePartments ensure tha-t action for prc‘•Lmature y:teitirement is taken in an appropriate manner.
13. Para (3) (d.) of the Office Memorandum da.ted 5.1-11 January, 19'78 lays down that no employee shou.ld ordinar.ily be retired on ground of inca_ffectiven.ess, if he would be retiring cm superannuation within a period of one year, It is clarified -that this instruction is re:levant only when an eMployee.. is proposed -to be retired on tha ground of ineffec- tive.nass, but not on the ground of doubtfu2. integrity. The damage. to public interest could be marginal if an c.id • employees in the last year af his service„ is found ine_ffec- tiye; but the damage. may be irnalculab3.0 if he is found ccacr.,2pt a.nd de.mands or obta.inn illegal gratification during the said period for the tasks he is duty baund to perform.
14. Para II(5) (a) of the C.M. dated St Janu.ary, 1978 also lays down that p-remature retirement. should not be used
r-e.tire a government se.rvant on gr.cunds aE specific acts _ of misconduct, as a short cut to initiating .formal discipli- nary proaeeding. It is clarified. that_ the inten.tion is nat. that., when an o:Ef.icer has reached the stage in service when._ review under P.R. 56(1) can be initiated and, -at that time...„ a. specific act of misconduct also comes to nctic.e„ action • undeir: P.R. 5.6(j) cannot be takena it is well settled t.hat prematv.r.e r.otireme_nt under I` .R. 56(j) is not. a punishment, tho.t there is no stigma and that no consequences f ollow. These conclusions will a.p-oly t.o an individual oaso orly when an order under F.R.56(j) is not a cover for what is, in fact, a punishment sought to be imposed. Hence illustratively where on ale alleged miscOnduct, a departmental inguir.y has teen conducted and the Stage has been reached as to the. decision. by the competent authority of the punishme.nt to be
aced,. it would not .be appropriate to isotte, instead, an
orc'-er prematu.re. ra.,tiremc_Ant under FR 56(j)'. Fan. where no departmental inquiry has been initiated and the specific allc...gation of misconduct involving lack_ of integrit.v is only one tett on the serv-ice record of the orfficer, which has to be considered in tato, an order 'trader FP, 56.(j) can guit_.e aporctria-aelv be. passed if the some is otherwi.se
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Each case has to be considered and decided on its own. .
merits. Rules 16(3) of the All India Services (Death-cum- retirement 'benefits) Rules, 1958 corresponds to F.R.56(j) and in the case of State of Uttar Pradesh vs. Chandra Mohan Nigam and others 1978(1) SLR 12 it was observed:
" We should hasten to add that when integrity of an officer is in question, that will he an exceptional circumstance for which orders may be passed. in respect cf such a perSon underrule 16(3), at any time, if other conditions of that rule are fulfilled, apart from the choice of disciplinary eation which will also be operCto Government."
15. It is hoped that with these supplementary
instructions Ministries/Departments will now talce effective action under FOR.56(j) against officers Whose intearitY is
doubtful.
16. Hindi version will follow.
,a qc.t6 GA arrinni (A, "a.yaramen)
ireCtor
To All the Ministries/DepartMents of the Government of India' with usual number cf spare copies..
No.25013/30/85-Estt(A) New Delhietne 7th August, 1985.
Copy, with usual number of spare copies, forwarded for
information to:-
1.Ccmptroller and Auditor General of India, Hey Delhi.
2.Unicn Public Service Commission, New Delhi.
3, Central Vigilance Ccmmission, New Delhi.
4. Commissioner for Linguistic Minorities, Allehbad.
5.Loh Sabha Secretariat/Rajya Sabha Secretariat, New Delhi.
6. All Union Territories Administrations, 17. All attached and subordinate offices of the Ministry of
Personnel and Training, Administrative Reforms and Public Grievances and Pension and Ministry of Mane
AffairSe
7
B. All Administrative Sections of the Ministry of Perscnnel and Training, Administ.rative Reforms and Public Grievances and Pension and Ministry Of Home Affairs.
9. copy to:- JS(E)/JS(S)/Establishment Of ficer/Directcra).
a cloit airricin 0
(A .17 aya.r arnan) Director,
asj/-
