Bilal Nazki, J.
1. This Writ Petition has been filed by the wife and father-in-law of one Raghuram, who was a Leading Electrical Mechanic Aircraft Radio in the Air Electrical Department, and was attached to INS VIRAAT.
2. According to the petition, said Raghuram had an exemplary service record with the Navy, and had not received any reprimand or punishment throughout his career. In the normal course, he would have retired in the year 2002. Earlier, he was posted in Goa, and on 1st November, 1998, he was transferred to Mumbai, and was allotted quarters for residence in Navy Nagar. On 8th November, 1998, Raghuram went for duty on INS VIRAAT. Said ship sailed on 9th November, 1998. Raghuram was on board when it sailed. According to the petition, when the ship reached Marmagao on 10th November, 1998, it docked there for a few hours, and then sailed again for exercises at high sea. The ship returned to Mumbai on 4th December, 1998. The petitioners did not receive any communication from Raghuram from 9th November, 1998 to 4th December, 1998. The first petitioner was waiting for Raghuram to return home, but he did not return. Therefore, from 4th December, 1998, the first petitioner made inquiries from Raghuram's colleagues regarding his whereabouts, and she was shocked to know that they had not seen him on board the ship from 10th November, 1998. On 6th December, 1998, Lieutenant George came to the quarters of petitioner No. 1, and informed her that Raghuram was missing from the ship since 10th November, 1998. Later on the same day, one Naval Officer Lt. Rajesh Kumar also visited the first petitioner, and informed her that Raghuram was missing. Lt. Rajesh Kumar informed the first petitioner that Raghuram's personal diary, uniform, shoes, identity card, wallet and other belongings were intact in his locker on board the said ship. Rajesh Kumar further informed the first petitioner that the Navy was making all possible efforts to trace Raghuram, and was also conducting inquiries internally and with the help of civil police. The first petitioner made repeated efforts to obtain further information about the whereabouts of Raghuram, but she could not get any information. On 15th December, 1998, the first petitioner received a letter dated 29th November, 1998 by Registered Post from the fourth respondent, informing her that Raghuram was a deserter from the Indian Navy, and a warrant of arrest had been issued against him. The second petitioner, on being informed by the first petitioner about the developments, reached Mumbai on 5th December, 1998. On 16th December, 1998, the petitioners and two of their relatives went on board INS VIRAAT, and met the fifth respondent, who was in command on the said ship. On that day, the fourth respondent was on leave. The fifth respondent, according to the petition, informed them -
(a) that Raghuram had not left the ship at Goa since he had not signed the Liberty Register maintained on board, which is required to be signed by every person on board before leaving the ship and on returning;
(b) that Raghuram's absence was noticed only at about 8.45 p.m. on 10th November, 1998 when the ship was at sea;
(c) that on noticing the absence of Raghuram, a search was conducted in the waters around the ship by boat and helicopter but nothing was found;
(d) that there was no apprehension whatsoever of any punishment about to be inflicted on Raghuram since his record was very clean and he was a reserved and well behaved person;
(e) that there were records to show that Raghuram had visited the ship's doctor about 10 times without previous case papers, due to which he was not treated.
3. It is also contended that Captain Verma instructed Lt. Rajesh Kumar to hand over the copies of all records relating to Raghuram, but nothing was handed over to the petitioners. On 23rd December, 1998, the petitioners again met the fourth respondent, and made enquiries about Raghuram. The fourth respondent told them that he had no knowledge of Raghuram's whereabouts and that the case had been handed over to the Naval Police as well as the Civil Police at Goa for further investigation.
4. Thereafter, the petitioners, through their Advocates, wrote letters to the fourth respondent, requesting information about the whereabouts of Raghuram. The respondents paid Raghuram's salary up to 30th November, 1998 and thereafter stopped payment. On 3rd February, 1999, the first petitioner was asked by the Naval Authorities to vacate forthwith the quarters allotted to Raghuram. Thereafter, the first petitioner went back to her brother's house in Andhra Pradesh. On 6th February, 1999, the first petitioner again wrote to the second respondent that she had been driven out of the accommodation, and she had no shelter.
5. Thereafter, it appears that a Board of Enquiry was held in which said Raghuram was declared a deserter. Therefore, a Writ Petition is filed, seeking quashing of findings of the Board of Enquiry, and reliefs with regard to the salary of Raghuram and pensionary benefits are also sought. A compensation of Rs. 2 lakhs is also sought.
6. Facts, as narrated in the petition about the disappearance of Raghuram, have not been disputed in the counter affidavit. It is admitted in the counter that G. Raghuram reported on duty on board on 8th November, 1998 at 0830 hours. INS VIRAAT sailed out of Mumbai for sea deployment on 9th November, 1998 at 1400 hours. The ship arrived at Goa on 10th November, 1998 at about 0730/0800 hours. Raghuram spoke to one B.R. Jat, LAM, at about 1030 hours and enquired if liberty was being permitted to ship's company. INS VIRAAT is a huge ship, and has large complement of about 1200 sailors. At Goa, liberty was permitted to the ship's company between 1030 hours to 1330 hours, which, according to the learned Additional Solicitor General, means that when the ship sailed at Goa, the sailors could leave the ship between 1030 hours to 1330 hours.
The ship sailed out of Goa at about 1600 hours and at about 1645 hours / 1700 hours, Raghuram's absence was noticed from his place of duty viz. Ship Wright Workshop. Announcements were made on the ship's public address system for Raghuram. However, there was no response from Raghuram. Then, enquiries were made with his messmates, colleagues and friends. At about 2030 hours a thorough search of all the compartments was carried out. Number of people were interrogated to ascertain if he was sighted in the ship during the day. Upon interrogation, one Rajendra Singh, POGI, and B.R. Jat, LAM, confirmed having met Raghuram in the morning at about 0900 / 1030 hours. At about 2300 hours, the sailor's locker was opened and belongings searched for any clue.
On 11th November, 1998 at about 0145 hours, INS GOMANTAK at Goa was informed about Raghuram's absence and to confirm his whereabouts in the adjoining areas. At about 0830 hours, INS KUNJALI at Mumbai was informed regarding the Sailor's absence from the ship and to confirm if he had contacted his family at Mumbai. Thereafter, certain communications were sent to other places with regard to disappearance of Raghuram. Commodore Bureau of Sailors, Naval Pay Office, INS KUNJALI, Flag Officer Commanding-in West, Flag Officer Commanding, Western Fleet, were intimated regarding the sailor's absence, declaring him as 'absconder' vide VIRAAT Signal DT 111520/Nov 98. Raghuram was marked absent with effect from 10th November, 1998.
On 11th November, 1998, an internal inquiry was conducted and the friends and associates of Raghuram were questioned and their statements obtained. On 12th November, 1998, INS GOMANTAK confirmed that the sailor had not reported in Goa and whereabouts were not known. All others, who had been contacted, also reported that the whereabouts of Raghuram were not known. On 13th November, 1998, the ship landed at Goa and a search party under one K.K. Ahuja was despatched to Vasco to ascertain from police and Raghuram's friends about him. A photograph of the sailor was handed over to Vasco Police. On 16th November, 1998, Raghuram was declared 'run'/'missing', since he had been absent for 7 days. On 18th November, 1998, Viraat Signal was raised, declaring Raghuram 'run'/'missing' with effect from 10th November, 1998, based on the evidence collected and awaiting the police report. On 29th November, 1998, warrant of arrest was issued and stigma letter to next-of-kin issued.
On 4th December, 1998, the ship arrived at Mumbai. Raghuram's family was informed about his absence and actions initiated to trace him. On 8th December, 1998, Missing Person Report was filed with Vasco Police Station. On 20th December, 1998, reminder to Vasco Police station was given. Reply was received from Vasco Police Station that no person with that identity had been traced. Thus, the status of the sailor was amended to 'run' from 'missing'/'run' on 31st December, 1998.
The authorities were informed accordingly, and finally, on 27th January, 1999, investigation report from the ship was forwarded to the Flag Officer Commanding-in-Chief, Headquarters, Western Naval Command, Mumbai.
7. On the basis of these assertions, it is submitted in the counter affidavit that it became clear that all efforts to trace out G.Raghuram were made. It is also stated that inspection of records in respect of every signal and general form issued was given to the counsel for the petitioners on 7th May, 1998 by Lieutenant Rajesh Kumar. It is also submitted that the service records of Raghuram contain endorsements made by his superiors in respect of efficiency, conduct and character of the sailor. From the medical records also, it was clear that the concerned sailor had visited the Medical Officer 6 times in the month of July, 1998 and 7 times in October, 1998. Raghuram had been treated for minor ailments such as upper respiratory track infection and viral fever. Raghuram was in Medical Category 'S1A1'.
8. It appears that a statutory Board of Inquiry was convened by the Flag Officer Commanding-in-Chief, Western Naval Command. The Board of Inquiry submitted its report. However, the convening Authority re-convened the Board of Inquiry with directions to inquire into certain further aspects also.
9. The only question, which falls for consideration in this petition, is: whether, in the facts and circumstances of this case, Raghuram could have been declared to be a deserter? If the declaration that he was a deserter was justified, then the petitioners may not be entitled to any benefits. But the learned Counsel for the petitioners submits that there is nothing on record to come to a conclusion that Raghuram was a deserter, but it should be presumed that he died while on duty, as more than 7 years have passed from the day he disappeared on board the ship.
10. Before we refer to the proceedings of the Board of Inquiry conducted by the respondents, it will be important to refer to certain provisions of the Navy Act, 1957 and also the Regulations framed under the Act. We are concerned with only Section 49(1), and the bare perusal of this provision would show that a person can be deserter if he absents himself from his ship or the place where his duty requires him to be, with an intention of not returning to such ship or place. Section 49 is reproduced:
49 (1) Every person subject to naval law who absents himself from his ship or from the place where his duty requires him to be, with an intention of not returning to such ship or place, or who at any time and under any circumstances when absent from his ship or place of duty does any act which shows that he has an intention of not returning to such ship or place is said to desert.
(2) Every person who deserts shall,-
(a) if he deserts to the enemy, be punished with death or such other punishment as is hereinafter mentioned; or
(b) if he deserts under any other circumstance, be punished with imprisonment for a term which may extend to fourteen years or such other punishment as is hereinafter mentioned.
And in every such case he shall forfeit all pay, head money, bounty salvage, prize money and allowances that have been earned by him and all annuities, pensions, gratuities, medals and decorations that may have been granted to him and also all cloths and effects which he may have left on board the ship or the place from which he deserted, unless the tribunal by which he is tried or the Central Government or the Chief of the Naval Staff, otherwise directs.
Section 51 deals with case of breaking out of ship and absence without leave, which does not amount to desertion, and it reads:
Every person subject to naval law who without being guilty of desertion improperly leaves his ship or place of duty or any place where he is required to be or is absent without leave shall be punished with imprisonment for a term which may extend to two years or such other punishment as is hereinafter mentioned and shall also be punished by such mulcts of pay and allowances as may be prescribed.
The consequences of desertion are mentioned in Section 49(2) and the consequences of absence without leave in Section 183. Then come the Regulations, but the Regulations may not be important, in view of the Board of Inquiry Report itself. As we have seen, for a person to be declared as a deserter, there must be a positive finding that a person who deserted had an intention of not returning to the ship or to the place where his duty demanded him to be.
11. In this connection, reference has been made by the counsel for the petitioners to various judgments. In Ibrahim and Ors. v. State of West Bengal and Anr. reported in : 1968CriLJ874 , in paragraph (5), the Supreme Court referred to the law laid down by Mr. Justice Lynskey, and referred to definition of 'desertion' from an earlier case, i.e., The Westmorland (1841) 1 Wm Rob 216 in the following terms:
I think a deserter is a man who leaves his ship and does not return to it with no other purpose than to break his agreement.
Then, the Supreme Court held:
The gist of desertion therefore is the existence of an animus not to return to the ship or in other words, to go against the agreements under which the employment of seamen for Sea voyages generally takes place. In our opinion, this definition may be taken as a workable proposition for application to the present case.
12. In Virendra Kumar through his wife v. The Chief of the Army Staff, New Delhi reported in : 1986CriLJ848 , the Supreme Court made a distinction between a deserter and a person who was absent without leave. It was concerned with provisions of the Army Act, 1950.
13. Then, there is a judgment dated 27th March, 1997 of a Division Bench of Himachal Pradesh High Court in Civil Writ Petition No. 96 of 1990 Sandhya Devi Parmar wife of L. Naik Balwant Singh Parmar Union of India and Ors. The facts of this case need to be narrated in order to appreciate the controversy before us. This petition has been filed before the High Court of Himachal Pradesh by the wife of one Lance Naik. In the month of May, 1986, he had gone on leave, and at the expiry of leave, he returned to duty on 25th July, 1986. He had written a letter to his brother from the place of work on 25th July, 1986 itself that he had arrived safely at the place of work and joined duty. Thereafter, in September, 1986, the wife of the Lance Naik received a letter that her husband was not traceable since 2nd August, 1986. There was correspondence between the petitioner and the authorities, and ultimately, the petitioner was informed that in the Court of Inquiry held in September, 1986, a decision was taken that the petitioner's husband had deserted the Army. Therefore, the facts of the present case are very similar to the facts of the case which was before the Court of Himachal Pradesh. In this case, the Court did not accept the plea of desertion, and held:
5. The authorities ought to have initiated the necessary steps to find out whether the petitioner's husband had met with any accident or anything else had happened to him. Instead they kept quiet after declaring him a deserter. No steps were taken to verify his whereabouts, and they dismissed him from service. It is only after the orders of this Court, passed in 1990, the authorities chose to address a communication to the Superintendent of Police, Mandi, to find out as to what happened to the petitioner's husband. A similar communication was sent in November, 1990 to the Deputy Commissioner, Gurdaspur (Punjab) and the Superintendent of Police, Gurdaspur (Punjab). The said authorities are said to have sent communications to the effect that the petitioner's husband was not traceable. If the authorities had taken steps immediately after the disappearance of the petitioner's husband from the working place and addressed communications to the Police in Gurdaspur something could have been found out about the petitioner's husband. Unfortunately, such steps were not taken by the authorities.
14. In the light of the law laid down by the Supreme Court, we examine the proceedings of the Board of Inquiry. Though this is a bulky document, and the learned advocates for both sides have taken us through important portions, we do not intend to quote from this report extensively, because the findings of the Board of Inquiry were not that the first petitioner's husband was a deserter. Findings of the Board were recorded in (a) to (s). Three of the findings are in (l), (m) and (n), which read as under:
(l) Based on the evidences and exhibits scrutinised by this board three possible reasons for G Raghuram LEMAR being missing from INS Viraat on 10th Nov 1998 come to light. The first is that the sailor died on board by falling into a compartment / deck, which is obviated, as a thorough search of the ship had been carried out twice on the same night of 10/11 Nov 1998. However it is not entirely ruled out.
(m) The second possibility is of the sailor having fallen over board. However the ship was alongside the jetty at Goa harbour from 0830 hours till 1600 hours on 10 Nov 1998, the sailor's body should have been found in the harbour itself. If the sailor had died by falling over board, the body should have been found by the Goa Police taking into account that the sailor had fallen over board at or before 1730 hours when he did not respond to the announcement on 10 Nov 1998. The position plotted and interpolated by the board from the ship's log for 10 Nov 1998 shows that INS Viraat was only 5.8 nautical miles from Grandi light and 8.5 nautical miles from Murmagao head. The police certificate, dated 30 Dec 98 from Vasco police station rules out this possibility to an extent, but not totally.
(n) The last and most probable reason for G Raghuram, LEMAR found missing is that the sailor left the ship unnoticed and without putting his name in the liberty book which is possible as stated by the Regulating Officer LCdr. P. Rawat (03134-Y) and Lt. Amitabh Sharma (03623-H). It is understood from the letters written by G Raghuram, LEMAR to MAVM Krishna, LEMA who is from INASS 551-A /INS Hansa that the sailor was in need of his own money which he wanted to be sent to Mumbai as his wife with his new born child and also his mother were coming to Mumbai in Oct 1998 and so he needed the money badly. The money was not delivered to him even after repeated letters to MAVM Krishna, LEMA till G Raghuram LEMAR sailed out from Mumbai on 09 Nov 1998. This probably was the reason why he was found disturbed at midnight on 09/10 Nov 1998 by R Rautela, LEMA and smoking continuously, although he was not a chain smoker.
15. The final conclusion is, 'However from the given evidence and exhibits the board finds that the sailor did not have any prior intention or motive to desert the ship'. If it is the finding of the Board of Inquiry that the petitioner had no prior intention or motive to desert the ship, the first petitioner's husband could not be declared as a deserter.
16. Besides these findings, it is revealed in the Board of Inquiry Report that Shri Raghuram was considered to be a competent and above-average sailor by the Department. 'He was a very calm and quiet sailor. He was very soft spoken and reserved in nature. His messmates have stated that he is normally found in the mess, except during work or while at meals. He never used to talk or mix around freely. He had no known enemy on board and neither did he have many friends on board. He never discussed any of his domestic problems. However, he once did talk to P.K. Rai, LEMA (168271-K), regarding his transfer. He is thin in build. He was a moderate drinker and smoker. However, he was not known to have ever returned from liberty totally drunk. He was an obedient, well turned out, sincere and hard working sailor. He was very punctual and has been acknowledged as one of the first to muster whenever announced for. All jobs assigned to him were done to the satisfaction of his supervisor and he was considered competent and above average in efficiency by his Divisional Officer and Master Chief-in-Charge, Air Electrical Department on INS Viraat.'
It is also revealed from the report that his personal belongings were in the ship. He has a bank account in Goa, where substantial amount was deposited. That was also not withdrawn by Shri Raghuram. He had not taken his belongings - not even his purse - with him. Therefore, to declare him a deserter was without any basis.
17. The Writ Petition deserves to be allowed and the impugned order quashed. Since the husband of the first petitioner has gone missing from 10th November, 1998, we feel that he can be presumed to have died in terms of provisions of the Evidence Act, 1872. Therefore, the respondents are directed to consider the case of the petitioners for entitlement of the benefits on the basis that the first petitioner's husband died during service. The Rule is partly made absolute.
18. A prayer with respect to compensation of Rs. 2 lakhs is also made, but in the facts and circumstances of the case, we do not find that any compensation needs to be paid to the petitioners.