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REPORTABLE

IN THE SUPREME COURT OF INDIA

CIVIL APPELLATE JURISDICTION

CIVIL APPEAL NO. 2759 OF 2015

(Arising out of SLP(C) No.12858 2009)

GRAH RAKSHAK, HOME GUARDS WEL.ASSO. APPELLANT(S)

VERSUS

STATE OF H.P. & ORS. RESPONDENT(S)

WITH

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J U D G M E N T

SUDHANSU JYOTI MUKHOPADHAYA,J

Delay condoned. Applications for deletion of proforma

respondents, substitution and permission to file SLP are allowed.

Leave granted.

2.As these appeals involve a common question of law, they have

been heard together and are being disposed of by this common

judgment.

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3.The appellants herein are individuals who are Home Guards of

States of Himachal Pradesh, Punjab and National Capital of

Territory of Delhi (‘N.C.T of Delhi’ for short). They and their

Association moved before High Courts in their respective States

seeking regularization of their services by filing writ petitions.

The judgments and orders impugned herein are those passed by the

High Courts in such writ petitions. By the impugned judgments and

orders, the High Courts dismissed the writ petitions filed by the

appellants.

4.The questions involved in these appeals are whether Home

Guards of States of Himachal Pradesh, Punjab and N.C.T of Delhi

are regular appointees in the cadre/services of Home Guards and if

not whether they are entitled for regularization of their

services.

5.The learned counsel for the appellants have taken the plea

that the appellants are working as Home Guards without any break

for about 10 to 30 years. Inspite of the same, they were not given

any benefits available to regular employees. They have neither

been granted regular pay scale, nor have their services

regularized.

6.Per contra, according to learned counsels for the States, the

appellants were appointed as Home Guards volunteers, working on

honorary basis and hence are entitled only for duty allowance as

per the schemes i.e. Acts and Rules framed for the said purpose.

7.For determination of the issues, it is necessary to notice the

Page 4 4

‘Genesis’ of Home Guards Organization and relevant provisions of

Acts and Rules framed by different States with regard to Home

Guards Organization.

8.Genesis

In the Compendium of Instructions of Home Guards published by

Directorate General Civil Defence, Ministry of Home Affairs,

Government of India, New Delhi, the Genesis of Home Guard

Organization is shown as below:

“1.1. Genesis

During World War-II, ‘Home Guards’- a voluntary

citizen organization for local defence was raised in the

United Kingdom. In India, in 6

th

December 1946, Home

Guards were raised in Bombay to assist the police in

controlling Civil disturbances and communal riots.

Subsequently, this concept of a voluntary citizen’s

force as auxiliary to the Police for maintenance of law

and order and for meeting emergencies like floods,

fires, famines etc. was adopted by several other States

such as Paranti Raksha Dal, West Bengal Village block

and Civic Guards. In the wake of Chinese Aggression in

1962, the Centre advised the States and Union

Territories to merge their existing voluntary

organizations into one all – India force known as ‘Home

Guards’ which would be voluntary both in concept and

character.

1.2.Role

The following revised roles are assigned to the

Home Guards. These instructions have been reiterated

from time to time:

(a) Serve as an auxiliary to the police and assist

in maintaining internal security.

(b)Assist the community in any kind of emergency

an air raid, a fire, a flood, an epidemic and so on.

(c)Organise functional units to provide essential

services such as motor transport, pioneer and engineer

groups, fire brigades, nursing and first-aid, operation

of water and power supply in installations etc.

(d)Promote communal harmony and give assistance

to the administration in protecting weaker sections of

Page 5 5

the Society.

(e)Participate in socio-economic and welfare

activities such as adult education, health and hygiene,

development schemes and such other tasks as are deemed

useful.”

9.Himachal Pradesh – Home Guards

Prior to reorganization of the State of Himachal Pradesh i.e.

1

st

November, 1966, the Bombay Home Guards Act, 1947 was in force

in some parts of the State. In other areas, the East Punjab

Volunteer Corps Act, 1947 was in force. The East Punjab Voluntary

Corps Act, 1947 which came into effect 8

th

December, 1947 makes it

clear that the said Act was enacted to provide for constitution of

volunteer corps for the whole State of Punjab. The Bombay Home

Guards Act, 1947 also makes it clear that the said Act was enacted

to provide voluntary organization for use in emergencies and for

other purposes in the State of Bombay.

The Bombay Home Guards Act, 1947 and East Punjab Volunteer

Corps Act, 1947 to the extend they were applicable in the State

were repealed by “the Himachal Pradesh Home Guards Act, 1968”

extending it to the whole State of Himachal Pradesh. Section 4

relates to constitution of volunteer body called the Home Guards

and reads as follows:-

“4. (1) The Government shall, by notification, constitute

for the State of Himachal Pradesh a volunteer body called

the Home Guards, the members of which shall discharge

such functions and duties in relation to the protection

of persons, the security of property, the public safety

and the maintenance of the essential services as may be

assigned to them in accordance with the provisions of

Page 6 6

this Act and the rules made thereunder:

Provided that the Government may, by notification,

divide the State of Himachal Pradesh into two or

more areas and appoint a Commandant for each such

area.

(2) The Administration and command of the Home Guards

constituted under sub-section (1) for any area shall,

under the overall command and control of the Commandant

General, be vested in the Commandant who shall be

appointed by the Government:

Provided that the Commandant may, with the approval

of the Commandant General, delegate such

administrative and disciplinary functions as may be

necessary for the efficient functioning of the

organization, to any officer subordinate to him.

(3) The general supervision and control of the Home

Guards throughout Himachal Pradesh shall vest in the

Commandant General which shall be appointed by the

Government.

(4) Until a Commandant is appointed in an area under sub-

section (1) the Commandant General may also exercise the

powers and perform the functions assigned to the

Commandant by or under this Act.”

Section 5(1) deals with appointment of members of the Home

Guards and reads as follows:-

“5.(1) Subject to the approval of the Commandant General,

the Commandant may appoint as members of the Home Guards

such number of persons, who are fit and willing to serve,

as may, from time to time, be determined by the

Government, and may appoint any such member to any office

of command in the Home Guards under him.”

From Section 5(1) we find that only persons who are fit and

willing to serve are eligible to be appointed as Home Guards. As

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per Section 5(4) a member of the Home Guards are required to serve

the Home Guards organization for a period of three years which may

be extended for further period.

10.Himachal Pradesh Home Guards Rules, 1971

In exercise of the powers conferred by section 14 of the

Himachal Pradesh Home Guard Act, 1968, the Himachal Pradesh Home

Guards Rules, 1971 was enacted. Rule 2(4) defines “Home Guards

Organization” as the Himachal Pradesh Home Guards constituted

under Section 4(1) of the Act i.e. Volunteer body. Section 2(5)

and Section 2(6) define “Member of Home Guards” and “Honorary Home

Guards” respectively as under:

“2.(5) “Member of Home Guards” means a member appointed

under section 5(1) of the Act, whether a part-time or a

whole time volunteer or a rank holder.

(6) “Honorary Home Guards” means a Home Guards volunteer

called under the Act.”

The age limit prescribed under Rule 3(a) is between 18 years

and 50 years. Rule 6 stipulates Home Guards constituted under

Section 4 will be a Battalion, comprising of a group of companies

under the command and control of a Commandant. Rule 6(i)

(b)stipulates that unless otherwise sanctioned by the State

Government, the officers of the Company will be Honorary Rank

holders and the Company can have only such additional paid staff

as may be sanctioned by the State Government. The relevant

portion of Rule 6(i)(b) reads as under:

Page 8 8

“6.(i) The Home Guards constituted under Section 4 of

the Act, will be a Battalion, comprising of a group of

Companies under the command and control of a Commandant

who shall be assisted by such executive, instructional

and clerical paid staff as may be senctioned by the

Government:-

(a)* * * *

(b) The overall strength of a company shall be 110.

Unless otherwise sanctioned by the State Government, the

officers of the Company will be Honorary Rank holders.

The Company can have such additional paid staff as may be

sanctioned by the State Government from time to time.

(ii) The honorary officers of the Company shall be paid

such honoraria and allowances as laid-down in the

succeeding paragraphs of these rules.

(iii) The Commandant General will have powers to create

the required number of the honorary posts.

(iv) The Commandant General or any authority prescribed

by him shall have powers to appoint any member of the

Home Guards to post referred to in

(iii) above under his command.”

Rule 13 makes it clear that the Home Guards rendering service

as volunteers are entitled to such allowances and honoraria as

specified therein and reads as follows:

“13.Conditions of service- (i) The Home Guards shall be

liable to serve anywhere within Himachal Pradesh.

Those who volunteer for duties outside Himachal Pradesh

may be drafted for the purpose as and when required.

(ii) The Home Guards employed for whole time duty,

other than the Honorary Home Guards, will receive pay

and allowances equivalent to their counterparts in the

Police Department of equal rank. The equivalency of

rank is given in Appendix ‘B’.

(iii)The Honorary Home Guards shall be voluntary

workers entitled to such allowances and honoraria as

specified hereunder. They shall also be provided free

accommodation wherever available when called for duty.

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Notwithstanding anything contained in Himachal Pradesh

Home Guards Rules, 1962, if any, free accommodation was

provided to them before coming into force of these

Rules, no recovery will be made from them on this

account.

(a) Duty allowance: All honorary officers and

members of Home Guards shall be paid a duty

allowance of Rs. 3/- per day when called under

Section 8(1) of the Home Guards Act-for

Operational duty for six hours or more.

(b) Camp allowance: If the place of duty is more

than 8 K.m. beyond the Company or Independent

Platoon headquarter as fixed by the Commandant

General, a sum of Rs. 1/- per day will be given in

addition to the duty allowances to the honorary

Officers and members of the Home Guards.

(c) Out of Pocket allowance:- When honorary

Officers and men of Home Guards are called for

training or duty for less than six hours, they shall

be paid an out of pocket allowance of Rs. 1/- per

day instead of the duty allowance of Rs. 3/-.

(d) Traveling allowance: (i) Honorary Officers and

the members of the Home Guards shall be entitled to

traveling and duty allowances on the scales as may

be sanctioned by the State Government from time to

time.

(e) Any Other allowance as may be sanctioned by the

Government from time to time.

(f) Honoraria: The Honorary Home Guards

Officers will be given an honoraria for performing

short-time instructional and administrative duties

at the following rates per mensem provided they

perform such duties during the month.

1. Company Commander Rs.40

2. Platoon Commander Rs.30

3. Havildars i.e. Havildar

Major Quarter Master

Havildars Clerk and

Platoon Havildar

Rs.15

4. Section Leader Rs.10

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-

(g) All members of the reserve force when called out

under Section 8 of the Act will be treated as Home

Guards on duty and all provisions of the Act and

these rules will apply to them.

(iv) No prosecution shall be instituted against any

Home Guard in respect of any thing done or

purporting to be done by him in the discharge of his

duties as a Home Guard except with the prior

sanction of the State Government or such other

Officer as empowered by the State Government in

this behalf.”

There are other benefits which are granted under Rule 15. In

case if any member of the Home Guards suffers any injury while

undergoing training or on duty, he is entitled to disability

allowance or compensation depending upon the nature of injury. In

case of death of Home Guard, as a result of injuries sustained

while on duty or on training, family pension and children

allowances are also payable. Relevant portion of Rule 15 reads as

under:

“15. If any member of the Home Guards suffer any damage

to his person or property while undergoing training or

on duty, and he does not cause it by his own

negligence or willful act or omission of the

provisions of this Act and Rules or directions issued

by superior Officer, he shall be paid compensation in

the form of temporary allowance, disability pension,

family pension and children allowances as the case may

be, on the following terms and conditions:-

(i) Temporary Allowance - If any Home Guards is

incapacitated for work for a period of 3 days

or more he shall be paid temporary disability

allowance for the period of disablement at the

rate of Rs. 30 per month payable at half

monthly intervals as Rs. 15.

(ii) Where an injury sustained by a Home Guard

causes him serious and prolonged or permanent

disablement, he shall be awarded compensation

at the rates mentioned below; The amount

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depending on the percentage of disablement:-

Prov ided

that where

the

disablement is not more than 50% and the injured

Home Guard is not debarred from the means of his

livelihood, the amount of disablement pension shall

be substituted by a lump sum payment calculated at

70 times of the monthly payments specified in the

foregoing schedule.

(iii) In case of death of a Home Guard, as a result of

injuries sustained while on duty or training, a

family pension and children allowances shall be

payable in accordance with the following:-

(a) A family pension of Rs.20 per month to his

legally wedded wife and in case the incumbent may

have more than one legally wedded wife, then this

rate of provision of Rs.20 will be distributed

equally and an allowance of Rs.5 per month to each

of his legitimate child in case no family pension

is being paid each child will get an allowance of

Rs.7.50 per month:

(i) x x x

(ii) x x x

(b) For calculating the amount of injury, the

opinion of the authorized Medical Officer shall be

legal and final. The authorized Medical Officer, in

this case means any Civil Doctor in the service of

the Government not below the rank of Class-I.”

11.Himachal Pradesh Home Guards (Amendment) Act, 2002

Himachal Pradesh Home Guards Act, 1968 was amended by the

Himachal Pradesh Home Guard (Amendment) Act, 2002. In Section 4

of the Himachal Pradesh Home Guards Act, 1968 in place of the word

‘members’, the word ‘volunteers’ was substituted and in Section 5

for the words “appointment of members” the words “enrollment of

volunteers” were substituted. Similarly for the words “appoint”

and “appointment” the words “enroll” and “enrollment” were

Percentage of

Disablement.

Disability pension

Per mensem

100 Rs. 30/-

90 Rs. 27/-

80 Rs. 24/-

70 Rs. 21/-

60 Rs. 18/-

50 Rs. 15/-

20 to 40 Rs. 12/-

10 Rs. 10/-

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substituted respectively. Even if we do not take into

consideration the Amendment Act, 2002, from the aforesaid

background the following fact emerges:

(i) In India on 6

th

December, 1956 Home Guards were raised in

Bombay as a volunteer organization by the Bombay Home

Guards Act, 1947 to provide a volunteer organization for

use in emergencies. The Bombay Act was applicable in the

part of the State of Himachal Pradesh.

(ii) The East Punjab Corps Act, 1947 came into force since 8

th

December, 1947 to provide for constitution of volunteer

corps. This Act was applicable in the remaining part of

the Himachal Pradesh.

(iii) The Bombay Home Guards Act, 1947 and East Punjab Corps

Act, 1947 to the extend they were applicable in the

State of Himachal Pradesh were repealed by Himachal

Pradesh Home Guards Act, 1968.

(iv) Under Section 4(1) of Himachal Pradesh Home Guards Act,

1968 a volunteer body was constituted called the Home

Guards, the members of which shall discharge such

functions and duties in relation to the protection of

persons, the security of property, the public safety and

the maintenance of essential services as may be assigned

to them.

(v) Rule 2 of Himachal Pradesh Home Guard Rules, 1971 deals

with Member of Home Guards and Honorary Home Guards.

(vi) Rule 6(ii) of the said Rules deals with honorary

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officers of the Company were to be paid honoraria and

allowances.

(vii) Rule 13 of the said Rules stipulates that the volunteers

duties outside the State are entitled for certain

allowances mentioned therein.

Thus we find that the Home Guard in Himachal Pradesh is a

volunteer body and its members are volunteers entitled for

allowances, they are not entitled to any salary.

12.State of Punjab - Home Guards:

The East Punjab Volunteers Corps. Act, 1947 was enacted and

published in the East Punjab Gazette, Extra-ordinary on 8

th

December, 1947 (East Punjab Act No.VIII of 1947) to provide for

the constitution of volunteers Corps. It was amended vide Punjab

Act 42 of 1960 and was titled as “Punjab Home Guards) Act, 1947.

Under Section 9 of the said Act, the State Government is empowered

to frame rules, which reads as follows:

“9.The State Government may make rules consistent with

this act.

a) Providing for the exercise of control by

officers of the Police force over members of the

Punjab (Home Guards), when acting directly in aid of

the Police force.

b) Regulating the organization, appointment,

conditions of service, duties, discipline, arms,

accoutrement and clothing of members of Punjab (Home

Guards) and the manner in which they may be called out

for service;

c) Conferring of member of Punjab (Home Guards)

according to their office any power, other than

magisterial or judicial power exercisable by any

person under any law for the time being in force; and

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d) Generally for giving effect to the provision of

this Act.”

The Punjab Home Guard Rules, 1963

In exercise of the power conferred by Section 9 of the Punjab

Home Guards Act, 1947, the Punjab Home Guards Rules, 1963 was

enacted by notification dated 4

th

September, 1963. Under Rule 2(c)

of the said Rules the designated post of officers notified as

Gazetted by Government has been shown as follows:

“2. Definitions.—In these rules, unless the context

otherwise requires,-

(c) ‘Gazetted Officer’ means an officer of the

status specified in column (1) below in the case of Home

Guards Unit I and in column (2) in the case of Home

Guards Unit II, and includes an officer of the status

notified as Gazetted by the Government:-

Rule 2(h) deals with Member of Home Guards including NCO and

Non Gazetted Officer as follows:

“(h) ‘member’ means a person appointed as member of the

Home Guards under section 3 of the Act;

(i) ‘N.C.Os’ means Non Commissioned Officers from Sub-

Section Leader to Havildar;

Column (1) Column (2)

(i) Commandant General (i) Gram Raksha Dal Chief.

(ii) Deputy Commandant

General

(ii) Chief Organizer, Gram

Raksha Dal.

(iii) Commandant. (iii) Director, Training, Gram

Raksha Dal.

(iv) Regional Commandant. (iv) Senior Staff

Officer.

(v) Battalion Commander. (v) Zonal Organizer.

(vi) Battalion—Second-in-

Command.

(Vi) District Organizer.

(vii) District Commandant

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(j) ‘Non Gazetted Officer’ means an officer of the status

specified in column (1) below in the case of Home Guards

Unit I and in column (2) in the case of Home Guards Unit

II and includes an officer of the status declared as non-

gazetted by an order of the Government:-

No fixed strength of Unit of Home Guards has been given

therein and the same has to be fixed by the Government from time

to time. Rule 10 deals with preference to ex-soldiers and ex-

policemen while enlisting members. We find that even an employee

of the State Government can be member of the Home Guard under Rule

11. Rule 10 and Rule 11 read as follows:

“10. Preference to ex-soldiers and ex-policemen. [Section

9(b)]- In enlisting members preference shall be given to

trained ex-soldiers, ex-I.N.A. personnel, ex-policemen

and National Cadet Corps trained personnel.

11. Employee Members.[Section 9(b)]- Such Government

employees or other employees as could be made available

by their respective employers in the case of emergency

may be enrolled as supernumerary or regular members with

the permission of the Head of the Office in the case of

Government employees and the employer in the case of

other employees.”

Under Rule 14, Pay and allowance if any admissible to the

Column (1) Column (2)

(i) Commandant Commandar (i) Company Commander

(ii)Company-Second-in-

Command

(ii) Company-Second-in-Command

(iii) Platoon Commander. (iii) Supervisor

(iv) Instructor

(v) Platoon Commander

Page 16 16

members including gazetted and non-gazetted Officers shall be

determined by the Government from time to time. Rule 6 directs

that the declaration of Enrolment has to be given by a member. The

form of declaration is given in Appendix A which is as follows:

APPENDIX ‘A’

(See rule 6)

(a) Enrolment Form

1. Name:

2. Father‘s Name:

3. Home Address:

a) Village

b) Post Office

c) Police Station

d) Railway Station

e) District

4. Age:

5. Profession:

6. Academic qualifications:

7. Present occupation and where employed with

complete address;

8. Whether convicted by any criminal court?

9. Are you willing to be enrolled in the Home Guards

Unit I or Home Guards Unit II?

10. Are you prepared to serve when called for duty

in case of emergency?

11. Have you ever served in I.A., I.N.A., I.T.F.

Police, etc

12. Are you a member of the Army reserve force?

13. What is your hobby?

14. Any other information you would like to give.

(b)Declaration of Acceptance for Enrolment

I, _____________________________________, solemnly

declare that the answers I have given to the

questions in this form are true and I am willing to

fulfill the engagements made.

Signature

Certified that the applicant understands and agrees

to the conditions of enrolment.

(Signature of Enrolling Officer)

Page 17 17

(c) Form of Declaration

I,________,son of________,resident of__________, do

herby solemnly declare, and affirm that as a member

of the Punjab Home Guards to which I have

volunteered after dully understanding the

responsibilities and duties which its membership

imposes upon me, I will honestly and faithfully

discharge my duty without fear or favour

irrespective of caste and creed.

Signature

Address__________________________

Enrolment _______ as___________is approved.

(Signature of Enrollment Officer)”

In exercise of the power conferred by Section 9 of the Punjab

Home Guards Act, 1947 “the Punjab Home Guards and Civil Defence

(Class II) Service Rules, 1988” “The Punjab Home Guard and Civil

Defence (Class I) Service Rules, 1988” were framed. Though the

aforesaid rules are not applicable to the present cases it is

necessary to notice the difference between the Punjab Home Guard

Rules, 1963 and 1988 Rules.

In Appendix ‘A’ of Class II Service Rules, the total strength

posts both permanent and temporary and the Regular scale of pay to

which the officers are entitled have also been shown therein.

Similarly, an Appendix to Class I Service Rules also total no. of

permanent and temporary posts has been shown along with the scale

of pay. No such strength of post and scale of pay have been shown

for members of Home Guards who were guided by the Punjab Home

Guard Rules, 1963.

Page 18 18

From the Punjab Home Guards Act,1947 we find that the Act has

been enacted to provide for the constitution of volunteers Corps

and therefore we hold that the members of the Home Guards of

Punjab under the Punjab Home Guards Rules are volunteers and are

not regular employees of the State.

13.N.C.T. of Delhi - Home Guards:

The Bombay Home Guards Act, 1947 was enacted to provide a

volunteer organization for use in emergencies and for other

purposes in the State of Bombay. It was extended to the Union

Territory of Delhi. Relevant portion of Bombay Home Guards Act,

1947 as extended to the Union Territory of Delhi reads as follows:

“The Bombay Home Guards Act, 1947 (Bombay Act No.III of

1947)As Extended to the Union Territory of Delhi Bombay

Act No.III of 1947.

(The Bombay Home Guards Act, 1947)

An Act to provide for the constitution of Home

Guards

Whereas it is expedient to provide a volunteer

organization for use in emergencies and for the

purposes in the State of Bombay. It is hereby enacted

as follows:-

1. Short title, extent and commencement-

(1) This Act may be called the Bombay Home Guards Act,

1947.

(2) It extends to the whole of the Union Territory of

Delhi.

(3) It shall come into force at once.

2. Constitution of Home Guards and appointment of

Page 19 19

Commandant General and Commandant

(1) The Chief Commissioner of Delhi shall constitute

for the Union Territory of Delhi a volunteer body

called the Home Guards, the members of which shall

discharge such functions and duties in relation to the

protection of persons the security of property and the

public safety as may be assigned to them in accordance

with the provisions of this Act and the rules made

thereunder.

Provided that the Chief Commissioner of Delhi may, by

notification in the Official Gazette, divide the Union

Territory of Delhi into two or more areas and

constitute such a volunteer body for each such area.”

Section 3 of the said Act deals with appointment of members of

Home Guards. Under Section 8 the Chief Commissioner of Delhi is

empowered to make rules consistent with the Act regarding the

organization, appointment, conditions of service, etc. of members

of Home Guards.

Delhi Home Guards Rules, 1959

In exercise of the powers conferred by Section 8 of the

Bombay Home Guards Act, 1947, as extended to the Union Territory

of Delhi, the Chief Commissioner of Delhi made Delhi Home Guard

Rules, 1959. Minimum age of 20 years and maximum age of 60 years

has been prescribed therein for being members of Home Guards. Rule

8 prescribes term of office which is 3 years and Rule 9 defines

limit of age for a member of the Home Guards. The said Rules read

as follows:

“8. Term of Office - The term of office of a member of

Page 20 20

the Home Guards shall be three years.

Provided that the appointment of any such member may,

at any time, be terminated by the Commandant General or

the Commandant, as the case may be, before the expiry

of the term of office -

(a) by giving one month's notice, or

(b) without such notice, if such member is found to be

medically unfit to continue as a member of Home Guards.

9. Limit of age for a member of the Home Guards - A

member of the Home Guards may continue to be such

member until he attains the age of sixty years.

Provided that the Commandant General or the Commandant

may relax the age limit in suitable cases.”

A member of the Home Guards who suffers any damage to his

person or property while under training or on duty is not entitled

for any other benefits except compensation under Rule 18, which

reads as follows:

“18. Compensation - If a member of the Home Guards

suffers any damage to his person or property while

under training or on duty, he shall be paid such

compensation as may be determined by the Chief

Commissioner; provided that such damage is not caused

by his own negligence or willful act omission in

contravention of any of the provisions of the Act or

rules made thereunder or orders or directions issued by

his superior officers.”

From the Bombay Home Guards Act, 1947 as extended to the

Union Territory of Delhi, the following fact emerges:

(i) The Home Guard is a volunteer organization for use in

Page 21 21

emergency and for the purpose of State

(ii) Chief Commissioner of Delhi by notification can

divide the Union Territory of Delhi into two or more

areas and constitute a volunteer body for each such

area.

(iii) The term of office of Home Guards is three years and

maximum age limit of appointment is upto the age of

sixty years.

Therefore, we find that the Home Guards of N.C.T. of Delhi

are volunteers and are not in any service of the State.

14.Learned counsel for the parties relied upon certain decisions

of this Court, as referred below:

(i)The case of State of W.B. and Others v. Pantha Chatterjee and

others, (2003) 6 SCC 469 was related to part time Border Wing Home

Guards recruited for patrolling the border and checking

infiltration. Initially they were appointed as volunteers for

three months but were retained for 14 long years. Being

dissatisfied with the pitiable conditions of service under which

they had been working and the nominal emoluments paid to them,

they preferred writ petitions before the Calcutta High Court

complaining that they were being discriminated vis-à-vis other

regular Border Wing Home Guards of West Bengal and the Border

Security Force Personnel, as they were performing similar duties

and discharging same responsibilities. The learned Single Judge on

considering the material on the record, came to the conclusion

that there is a relationship of master and servant between the

Page 22 22

Border Wing Home Guards and the State of West Bengal, who is their

appointing authority. The learned Single Judge held that so far as

the nature of the employment is concerned i.e. whether casual or

voluntary, in view of memo dated 11

th

October, 1985 issued by the

Government of West Bengal the writ petitioners could not be

treated as volunteers engaged in casual nature of work so as to be

termed as part-time staff of the Government of West Bengal. They

were also held to be holders of civil posts under Article 311 of

the Constitution. Referring certain case laws with regard to daily

wage casual workers, the Single Judge further held that they are

entitled for “equal pay for equal work” i.e. the same benefits as

admissible to the permanent Border Wing Home Guards.

In an appeal filed by the State against the aforesaid

decision of the Single Judge, this Court upheld the same . This

Court held:

“16. In the present case, we have seen that there has

not been any dispute about the nature of duties of

the two sets of BWHG. Ordinarily, no doubt, they

could claim benefits only in accordance with the

Scheme under which they were engaged. But as held

earlier, the Scheme was not implemented in its terms

as framed. Hence, the distinction sought to be drawn

between the part-time and the permanent BWHG had

obliterated and both worked together shoulder to

shoulder under similar situations and circumstances

and discharged same duties. Once the Scheme as framed

failed to be implemented as such by those at the helm

of the affairs and the part-time BWHG were continued

under the authority of those vested with such power

to continue them, it is not open to the State

Government or the Central Government to deny them the

same benefits as admissible to members of the

permanent staff of BWHG. The decisions reported in

Karnataka State Private College Stop-gap Lecturers

Assn. v. State of Karnataka9 and Govt. of India v.

Page 23 23

Court Liquidator’s Employees Assn.10 may also be

beneficially referred to.

17. On the basis of the Scheme, as promulgated by the

Government of India, the State Government with the

sanction of the Governor of West Bengal raised the

battalion of Border Wing Home Guards, as indicated

earlier and they were to be paid from a given head of

expenditure of the State Government. The Scheme,

however, makes it clear that the expenditure incurred

would be reimbursed by the Central Government. The

Central Government should not and cannot get out of

this undertaking. It is no doubt true that the State

of West Bengal being in the position of an employer

of the respondent petitioners, owes the primary

responsibility of making all the payments on account

of salary, allowances and other perquisites to them

as admissible to the permanent staff of the Border

Wing Home Guards but this burden of expenditure must

be ultimately borne by the Central Government. The

petitioners have been guarding the borders of the

country assisting BSF in checking the infiltration

from across the border. The petitioners have been

working and discharging their duties under the

control of the authorities of the Border Security

Force. We also find that the Central Government

cannot shed its responsibility by raising a lame plea

that it was because of the State Government that

voluntary character of the engagement of the writ

petitioners, as per the Scheme, was lost. In our

view, the primary responsibility for deployment for

such a long duration squarely lies upon the Central

Government. The deployment was envisaged to be for a

period of 3 months, to be continued, only if

necessary as may be assessed by the authorities of

the Border Security Force. The authority to continue

the deployment beyond the period of 3 months was

entrusted to the responsible authorities of the

Border Security Force by the Central Government

itself. There is no dispute that the writ petitioners

were continued accordingly. In such a situation the

State Government hardly had any choice in the matter

to cease or withdraw the deployment engaged in the

job of patrolling of borders under operational

control of BSF.

18. In the circumstances indicated above, the High

Court has rightly come to the conclusion that the so-

called part-time Border Wing Home Guards could not be

treated differently from the permanent staff of BWHG.

Page 24 24

They have been rightly accorded parity with them.”

15.Learned counsel appearing on behalf of the appellants had

taken plea that the appellants have been working as Home Guards

for period ranging from 10 to 30 years and therefore in view of

the decision in State of W.B. and Others v. Pantha Chatterjee and

others, (2003) 6 SCC 469 they are also entitled for regularization

of their services.

However, such contention has been opposed by the learned

counsel for the State(s). They relied upon another decision of

this Court in State of Manipur and another v. Ksh. Moirangninthou

Singh and others, (2007) 10 SCC 544. In the said case, the members

of the Manipur Home Guards filed different writ petitions in the

Gauhati High Court inter alia praying that their services be

regularized in the Home Guards and that they be given regular pay

scales. In the said case, the Court noticed that Home Guards have

been constituted as a voluntary organization for service in

emergencies. Their initial appointment was for three years after

which it is at the discretion of the Commandant, subject to

approval of the Commandant General to reappoint a member of the

Home Guards. The Court further noticed that there was a age limit

of 50 years. In the said case, the Court held:

“7. We are of the opinion that in view of the

Constitution Bench judgment of this Court in Secy.,

State of Karnataka v. Umadevi (3)1 this Court cannot

direct regularisation in service. Since the court has

no power to direct regularisation, it also follows

that it has no power to direct grant of benefits

payable to the regular employees.”

Page 25 25

The Court further held:

“11. A perusal of the provisions of the Home Guards

Act and the Rules show that the Home Guards was meant

to be a reserve force which was to be utilised in

emergencies, but it was not a service like the

police, paramilitary force or army, and there is no

right in a member to continue till the age of 55

years. We approve the view taken by the Delhi High

Court in Rajesh Mishra v. Govt. of NCT of Delhi.”

16.In Union of India v. Parul Debnath, (2009) 14 SCC 173 , the

Court considered the Andaman and Nicobar Islands Home Guard

Regulations, 1964. In terms of Regulation 16 of the said

Regulations, the then Chief Commissioner (now Lieutenant

Governor), Andaman and Nicobar Islands, framed “the Andaman and

Nicobar Home Guard Rules, 1965” for providing a voluntary

organization named as “Andaman and Nicobar Islands Home Guard

Organization” for use in emergency and for other purposes in the

Union Territory of Andaman and Nicobar Islands. The respondents

therein claimed to be continuously performing the duties of a

regular nature. They moved before the Central Administrative

Tribunal, Calcutta Bench, Circuit Bench at Port Blair seeking

equal pay for equal work with regular Home Guards or for

regularization of their service. The said original application was

disposed of by the Tribunal by common order dated 16

th

September,

2002 inter alia, with a direction to the State authorities to

consider the framing of an appropriate scheme. Writ petitions

Page 26 26

filed against the said order of Tribunal was disposed of by the

learned Single Judge directing the appropriate authority to frame

a scheme as directed by the Tribunal and while doing so to take

into consideration the principles laid down in Pantha Chatterjee

case. The scheme framed by the state authorities providing

reservation of 20% of the vacant posts to accommodate the

respondents in a phased manner, while setting apart 80% of the

vacancies for other parties, was later challenged before learned

Single Judge by filing a writ petition. The learned Single Judge

dismissed the same and on appeal, Division Bench reversed the

judgment of learned Single Judge and set aside the scheme framed.

In an appeal challenging the said decision of the Division Bench,

this Court upheld the same and held as follows:

“42. In our view, the Division Bench has very

correctly observed that the intention of the Tribunal

and the courts was that the benefits to be given to

the writ petitioners (the respondents herein) should

be extended to all of them uniformly and without

making any discrimination. The very fact that some of

the respondents would be regularised, while the

others would have to wait till the next vacancies

arose or the possibility that some of the candidates

who were otherwise eligible, might not even be

absorbed, was never the intention when the directions

were given to frame a scheme for absorption of the

respondents. In our view, such a course of action

appears to have been adopted to negate the effect of

the earlier orders so that the respondents as a whole

were deprived of the benefit of absorption and the

further benefit of “equal pay for equal work”, as was

indicated in Pantha Chatterjee case1.

43. As a direct consequence of the disparity in

the pay structure of the respondents, who were to be

absorbed in stages, their post-retiral benefits would

be affected and would not be uniform, which was also

not intended when directions were given for framing

of a scheme to absorb the said respondents.

Page 27 27

44. Clause (h) of the scheme, which has been

commented upon by the Division Bench of the High

Court, denies to the respondents any other benefit

other than those specified in the scheme, thereby

creating a class within a class, which is not only

contrary to Article 16 of the Constitution but is

also contrary to the directions given by the High

Court regarding absorption of the existing Home

Guards. Even Clause (i) is arbitrary and

discriminatory in nature as it contemplates a

situation where some of the respondents who were

otherwise eligible, may not at all be absorbed in the

regular administration which would disentitle them to

the benefits of the directions given by the Central

Administrative Tribunal and the High Court.

45. On the question of creation of supernumerary

posts, it may be indicated that while it is no doubt

true that creation of posts is the prerogative of the

executive, in order to meet certain special

exigencies such a course of action has been resorted

to by this Court and in our view this is one such

case where such a direction does not need any

intervention.”

17.In the cases before us though some of the Home Guards (Grah

Rakshak) produced their appointment letters to show that they are

serving as Platoon Havaldar for 10 to 28 years, we find that they

have been enrolled and there is no appointment on regular basis.

They have never been paid salary/wages and there is no provision

to make any payment of salary/wages other than the duty allowance

and other allowances.

18.In the Form filled up by the Home Guards volunteers of each

State, the Home Guards have specifically mentioned that they

undertake to serve as a member of the Home Guards at any time and

place in India if they are called out for training or duty.

This is evident from Form I of Himachal Pradesh Home Guards

Page 28 28

Act, 1968 which shows that they are entitled for temporary

allowance and in case of injury sustained or disability occurred

during the duty they are entitled for disability pension.

19.Similar is the case of Bombay Home Guards, who have been

appointed as volunteers Home Guards under the Act. They also have

given declaration that they have volunteered as a member of the

Home Guard.

20.The Home Guards of N.C.T. of Delhi also have been appointed

to the organization which is volunteer body under the Act.

Provision discussed above makes it clear that Chief Commissioner

of Delhi only engage volunteers in the Home Guards. The Home

Guards being volunteer body in the N.C.T. of Delhi, the

appellants-Home Guards of Delhi cannot be claimed to be regular

appointees.

21.It is not the case of the State Government that

enrollment/appointments of the Home Guards were backdoor

engagement and illegal made in violation of Articles 14 and 16 of

the Constitution of India. Therefore, the decision of this Court

in Umadevi(3) is not applicable in the case of the appellants-Home

Guards. Admittedly, there is no concept of wages. These

volunteers are paid duty allowance and other allowances to which

they are entitled. There is nothing on the record to suggest that

they performed duties through out the year.

On the other hand, it is the specific case of the State that

Page 29 29

as and when there is requirement they were called for duty and

otherwise they remained in their homes. Therefore, in absence of

any details about continuity of service, month to month basis or

year to year basis, the duties and responsibilities performed by

them through out the year can neither be equated with that of

police personnel.

22.In view of the discussion made above, no relief can be

granted to the appellants either regularization of services or

grant of regular appointments hence no interference is called for

against the judgments passed by the Himachal Pradesh, Punjab and

Delhi High Courts. However, taking into consideration the fact

that Home Guards are used during the emergency and for other

purposes and at the time of their duty they are empowered with the

power of police personnel, we are of the view that the State

Government should pay them the duty allowance at such rates, total

of which 30 days (a month) comes to minimum of the pay to which

the police personnel of State are entitled. It is expected that

the State Governments shall pass appropriate orders in terms of

aforesaid observation on an early date preferably within three

months.

Page 30 30

23.The appeals are disposed of with the aforesaid observation.

No costs.

……………………………………………………………………… J.

(SUDHANSU JYOTI MUKHOPADHAYA)

……………………………………………………………………… J.

(N.V. RAMANA)

NEW DELHI,

MARCH 11, 2015.