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CASE NO.: Writ Petition (civil)  79 of 1979

PETITIONER: R.K.SABHARWAL AND ORS.

RESPONDENT: STATE OF PUNJAB AND ORS.

DATE OF JUDGMENT: 10/02/1995

BENCH: KULDIP SINGH & S.MOHAN & M.K.MUKHERJEE & B.L.HANSARIA & S.B.MAJMUDAR  

JUDGMENT: JUDGMENT

Delivered By: KULDIP SINGH (J)  

Kuldip Singh,J.

           1.The petitioners and respondents 4, 5 and 6 are members  of the Punjab Service of Engineers (Class  1)  (the Service)  in  the  Irrigation Department  of  the  State  of Punjab.  The respondents are members of the Scheduled Castes whereas the petitioners belong to the general category.  The conditions  of  service of the members of  the  Service  are governed by the Rules called The Punjab Service of Engineers Class  I P.W.D. (I.B.) Rules, 1964 (the Rules).  The  Punjab Government  by the instructions dated May 4,  1974  provided reservations  for the Scheduled Castes and Backward  Classes in  promotions to and within Class I and II  services  under the  State  Government.   It was laid down  under  the  said instructions  that 16 per cent of the posts to be filled  by promotion  were to be reserved for members of the  Scheduled Castes  and Backward Classes (14 per cent for the  Scheduled Casts  and 2 per cent for the Backward Classes)  subject  to the  conditions  that  the persons  to  be  considered  must possess the minimum necessary qualifications and they should have,  satisfactory  record of  service.   The  instructions further provided as under:               "(i) In a lot of 100 vacancies occurring  from               time to time, those falling at serial  numbers               mentioned below should be treated as  reserved               for the members of Scheduled Castes;               1, 7, 15, 22, 30, 37, 44, 51, 58, 65, 72,  80,               87, 91 and so on.  Vacancies falling at serial               numbers  26  and  76  should  be  treated   as               reserved for the members of Backward Classes.               (ii)  The  reservation  prescribed  shall   be               given effect to in accordance with a roster to               be maintained in each Department.  The  roster               will  be implemented in the form of a  running               account from year to year." Rule 9 of the Rules which provides for promotion within  the service reads as under "Promotion within service;-

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354 (1)  Subject to the provisions of sub-rules 2 and 3  members of the Service shall be eligible for promotion to any of the posts   in   the  Service,  namely,   Executive   Engineers, Superintending Engineers and Chief Engineers: Provided  that  a Member of the Service in  whose  case  the qualifications  mentioned in clause (a) of Rule 6 have  been waived,  shall not be eligible for promotion to the post  of Superintending  Engineer or above till he has  acquired  the necessary qualification. Explanation:- Once an officer has been appointed a member of the  Service, his promotion within it from one rank  to  an- other shall be regarded as promotion within the same cadre. (2)  Promotions  shall be made by selection on the basis  of merit  and suitability in all respects and no member of  the Service  shall have any claim to such promotion as a  matter of right or mere seniority. (3)  A  member  of  the Service shall not  be  eligible  for promotion to the rank of--- (a)  Executive  Engineer unless he has rendered  five  years service as an Assistant Executive Engineer; Provided that an officer who has rendered six years or  more service  as an Assistant Executive Engineer shall unless  he is considered unsuitable for promotion, be given  preference for such promotion over an eligible Class II Officer; (b)  Superintending  Engineer, unless he has rendered  seven years service as an Executive Engineer; (c)  Chief  Engineer,  unless he has  rendered  three  years service as Superintending Engineer; Provided  that, if it appears to be necessary to promote  an officer in public interest, the Government may, for  reasons to be recorded in writing, either generally for a  specified period or in any individual case reduce the period specified in  clauses (a), (b) and (c) to such extent as it  may  deem proper. It  is stated in the writ petition that the petitioners  are at  serial  Nos. 19, 23, 26, 29, 30, 31, 34 and  38  of  the seniority list of the Service whereas the respondents are at serial  Nos. 46, 140 and 152.  Respondent Rattan  Singh  was promoted  to  the rank of Chief Engineer  against  the  post reserved  for the Scheduled Castes by superseding 36  senior colleagues    including   the    petitioners.     Similarly, respondents  Surjit  Singh and Om Prakash were  promoted  as Superintending  Engineers against the reserve  vacancies  by superseding  82  and  87  senior  colleagues   respectively. According  to  the petitioners at the time of  promotion  of these  respondents the petitioners were already  working  as Superintending  Engineers for several years.  It is  further averred in the petition that respondents 4, 5 and 6 were  in fact  working  as Executive Engineers when  the  petitioners were holding the posts of Superintending Engineers. 2.   On the above facts the petitioners have challenged  the reservation-policy on several grounds but Mr. Harish  Salve, learned  counsel  for  the  petitioners,  has  confined  the arguments to the following two points: (1)  The  object  of  reservation  is  to  provide  adequate representation  to the Scheduled Castes/Tribes and  Backward classes  in services and as such any mechanism  provided  to achieve that end must have nexus to the object sought to be 355 achieved.  The precise argument is that for working out  the percentage of reservation the promotees/appointees belonging to  the  Scheduled  Castes  and  Backward  Classes   whether appointed against the general category posts or against  the reserve  posts  are to be counted.  In other words  if  more

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than   14%   of   the  Scheduled   Castes   candidates   are appointed/promoted  in a cadre on their own  merit/seniority by  competing with the general category candidates then  the purpose  of  reservation  in  the  said  cadre  having  been achieved the Government instructions providing  reservations would become inoperative. 3.   Once   the   posts   earmarked   for   the    Scheduled Castes/Tribes and Backward Classes on the roster are  filled the  reservation  is complete.  Roster  cannot  operate  any further and it should be stopped.  Any post falling  vacant, in  a cadre thereafter, is to be filled from the category  - reserve or general - due to retirement etc. of whose  member of the post fell vacant. 4.   Adverting to the first point Mr. Harish Salve  and  Mr. Rajiv Dhawan, learned    counsel      representing       the petitioners,  have  contended  that  the  total  number   of promotees/appointees belonging to the reserve categories  in a  cadre are to be counted to work-out the  prescribed  per- centage  of reservation.  According to the  learned  counsel the reserve categories can take advantage of the reservation made  in  their  favour till  their  representation  in  the Service   --  including  those  appointed  against   general category  posts -- reaches the prescribed  percentage.   For working   out   the  percentage   the   promotees/appointees belonging  to reserve categories in the Service, whether  on the  reserve  posts  or general category posts,  are  to  be counted. Support  is  sought  from the judgment  of  the  Punjab  and Haryana  High  Court in Joginder Singh Sethi and  others  v. Punjab  Government and other 1982 (2) SLR 307.  In the  said case  22%  reservation  was  provided  for  the  members  of Scheduled Castes/Tribes and Backward Classes.  In the  cadre strength  of 202 posts the Scheduled Castes candidates  were entitled to 42 posts.  There were already 47 members of  the said category in the cadre but out of them 10 were  promoted on the basis of seniority-cum-merit against the general cat- egory  posts.   There  being only 37 persons  who  had  been promoted against the reserved posts 4 more Scheduled  Castes were  sought to be promoted against the  reserve  vacancies. The High Court quashed the promotion on the ground that  the cadre  was  already having more than 22%  persons  from  the reserve categories.  We are of the view that the High  Court in  Joginder  Singh Sethi’s case fell into a  patent  error. The said case was subsequently considered by a Full Bench of Punjab & Haryana High Court in Jaswant Singh v. Secretary to Government  of  Punjab,  Education  Department  [  1989  (4) Services  Law Reporter 257].  The Full Bench did  not  agree with  the ratio in Joginder Singh Sethi’s case and  reversed the same. 5.   When a percentage of reservation is fixed in respect of a  particular  cadre and the roster  indicates  the  reserve points,  it  has  to be taken that the posts  shown  at  the reserve points are to be filled from amongst the members  of reserve  categories  and  the candidates  belonging  to  the general  category are not entitled to be considered for  the reserve  posts.   On  the other hand  the  reserve  category candidates can compete for the non-reserve posts and in  the event of their appointment to the said 356 posts   their  number  cannot  be  added  and   taken   into consideration for working out the percentage of reservation. Article 16(4) of the Constitution of India permits the State Government  to  make any provision for  the  reservation  of appointments  or  posts in favour of any backward  class  of citizen which, in the opinion of the State is not adequately

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represented  in  the  Services  under  the  State.   It  is, therefore, incumbent on the State Government to reach a con- clusion  that  the  backward  class/classes  for  which  the reservation  is  made is not adequately represented  in  the State  Services.   While doing so the State  Government  may take the total population of a particular backward class and its  representation in the State Services.  When  the  State Government  after  doing the necessary  exercise  makes  the reservation  and provides the extent of percentage of  posts to  be  reserved for the said backward class then  the  per- centage  has  to  be  followed  strictly.   The   prescribed percentage  cannot be varied or changed simply because  some of  the  members  of the backward class  have  already  been appointed/promoted against the general seats.  As  mentioned above  the  roster point which is reserved  for  a  backward class  has to be filled by way of  appointment/promotion  of the member of the said class.  No general category candidate can  be  appointed  against a slot in the  roster  which  is reserved for the backward class.  The fact that considerable number  of  members  of  a  backward  class  have  been  ap- pointed/promoted against general seats in the State Services may be a relevant factor for the State Government to  review the  question of continuing reservation for the  said  class but  so  long as the instructions/ Rules  providing  certain percentage of reservations for the backward classes are  op- erative the same have to be followed.  Despit any number  of appointment/promotees  belonging  to  the  backward  classes against the general category posts the given percentage  has to be provided in addition.  We, therefore, see no force  in the  first  contention  raised by the  learned  counsel  and reject the same. 6.   We see considered force in the second contention raised by   the   learned  counsel  for   the   petitioners.    The reservations   provided   under  the   impugned   Government instructions  are  to  be operated in  accordance  with  the roster  to be maintained in each Department.  The roster  is implemented  in  the form of running account  from  year  to year.  The purpose of "running account" is to make sure that the  Scheduled Castes/Schedule Tribes and  Backward  Classes get  their  percentage of reserved posts.   The  concept  of "running account" in the impugned instructions has to be  so interpreted   that   it  does  not   result   in   excessive reservation.   "16%  of  the  posts......are  reserved   for members  of the Scheduled Caste and Backward Classes.  In  a lot of100 posts those falling at serial numbers 1,7, 15, 22, 30, 37, 44, 51, 58, 65, 72, 80, 87 and 91 have been reserved and  earmarked  in  the  roster  for-the  Scheduled  Castes. Roster  points  26 and 76 are reserved for  the  members  of Backward Classes.  It is thus obvious that when  recruitment to a cadre starts then 14 posts earmarked in the roster  are to  be  filled  from amongst the members  of  the  Scheduled Caste.  To illustrate, first post in a cadre must go to  the Scheduled Caste and thereafter the said class is entitled to 7th, 15th, 22nd and onwards upto 91st post.  When the  total number  of posts in a cadre are filled by the  operation  of the  roster  then  the  result  envisaged  by  the  impugned instructions is achieved.  In other words, in 357 a cadre of 100 posts when the posts earmarked in the  roster for the Scheduled Castes and the Backward Classes are filled the  percentage  of reservation provided  for  the  reserved categories is achieved.  We see no justification to  operate the roster thereafter.  The "running account" is to  operate only till the quota provided under the impugned instructions is  reached  and not thereafter.  Once the  prescribed  per-

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centage of posts is filled the numerical test of adequacy is satisfied  and thereafter the roster does not survive.   The percentage  of reservation is the desired representation  of the Backward Classes in the State services and is consistent with the demographic estimate based on the proportion worked out in relation to their populations The numerical quota  of posts is not shifting boundary but represents a figure  with due application of mind.  Therefore, the only way to  assure equality  of  opportunity to the Backward  Classes  and  the general category is to permit the roster to operate till the time  the respective appointees/ promotees occupy the  posts meant  for them in the roster.  The operation of the  roster and  the  running account" must come to an  end  thereafter. The vacancies arising in the cadre, after the initial  posts arc filled, will pose no difficulty.  As and when there is a vacancy whether permanent or temporary in a particular  post the same has to be filled from amongst the category to which the post belonged in the roster.  For example the  Scheduled Caste persons holding the posts at Roster - points 1, 7,  15 retire  then these slots are to be filled from  amongst  the persons  belonging to the Scheduled Castes.   Similarly,  if the  persons holding the post at points 8 to 14 or 23 to  29 retire  then  these slots are to be filled  from  among  the general  category  By following this  procedure  them  shall neither  be  short-fall  nor excess  in  the  percentage  of reservation. 7.   The expressions "posts" and "vacancies", often used  in the  executive instructions providing for reservations,  are rather problematical.  The word "post" means an appointment, job, office or employment.  A position to which a person  is appointed.   "Vacancy" means an unoccupied post  or  office. The plain meaning of the two expressions make it clear  that there must be a ’post’ in existence to enable the  ’vacancy’ to  occur.  The cadre - strength is always measured  by  the number  of posts comprising the cadre.  Right to be  consid- ered  for  appointment can only be claimed in respect  of  a post  in  a  cadre.   As a  consequence  the  percentage  of reservation  has to be worked out in relation to the  number of  posts  which form the cadre-strength.   The  concept  of ’vacancy’  has no relevance in operating the  percentage  of reservation. 8.   When  all  the roster-points in a cadre am  filled  the required  percentage of reservation is achieved.   Once  the total  cadre  has  full  representation  of  the   Scheduled Casts/Tribes  and  Backward Classes in accordance  with  the reservation policy then the vacancies arising thereafter  in the  cadre  are to be filled from amongst  the  category  of persons  to  whom the respective vacancies  belong.   Jeevan Reddy,  J. speaking  for the majority in Indra  Sawhney  vs. Union of India (AIR 1993 SC 477) observed as under:-               "Take  a  unit/service/cadre  comprising  1000               posts.    The   reservation   in   favour   of               scheduled  Tribes  Scheduled  Cass  and  other               Backward  Classes is 50% which means that  out               Of  the  1000 posts 500 must be  held  by  the               members  of  these classes i.e- 270  by  Other               Backward               358               Classes,  150  by Scheduled Casts  and  80  by               Scheduled  Tribes.  At a given point of  time,               let us say the number of members of OBC in the               unit/   service/  category  is  only   50,   a               shortfall  of  220.  Similarly the  number  of               members  of  scheduled  Casts  and   Scheduled               Tribes   is  only  20  and   5   respectively,

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             shortfall  of  130  and  75.   If  the  entire               service/cadre  is  taken as as  unit  and  the               backlog is sought to be made up, then the open               competition   channel   has  to   be   chocked               altogether  for  a number of years  until  the               number  of  members of  all  backward  classes               reaches  500  i.e., till the quota  meant  for               each  of  them is filled up.   This  may  take               quite a number of vacancies arising each  year               are not many.  Meanwhile, the members of  open               competition  category would become age  barred               and  ineligible.  Equality of  opportunity  in               their  case  would become a mere  mirage.   It               must  be  remembered  that  the  equality   of               opportunity  guaranteed  by clause (1)  is  to               each  individual citizen of the country  while               clause  (4)  contemplates  special   provision               being made in favour of socially disadvantaged               classes.   Both must be balanced against  each               other.   Neither should be allowed to  eclipse               the other.  For the above reason, we hold that               for the purpose of   applying the rule of  50%               a year should   be  taken as the unit and  not               the  entire of the cadre, service or the  unit               as the case may be" 9.   The quoted observations clearly illustrate   that   the rule of 50 % a year as unit and not     entire  strength  of the  cadre  has been adopted to protect the  rights  of  the general  category  under  clause (1) of Article  16  of  the Constitution   of  India.   These  observations   in   Indra Sawhney’s  case,  arc only in relation to  posts  which  are filled  initially in a cadre.  ’The operation of  a  roster, for filling the cadre strength, by itself ensures that  the- reservation remains within the 50 % limit.  Indra  Sawhney’s case-  is  not the authority for the point that  the  roster survives after the cadre-strength is full and the percentage of reservation is achieved. 10.A  Division  Bench of the Allahabad High  Court  in  J.C. Malik and others v. Union of India and others (1978)SLR 844) interpreted  Railway Board’s circular dated April  20,  1970 providing  15%  reservations for the Scheduled  Casts.   The High  Court  held that the percentage of reservation  is  in respect of the appointment to the posts in a cadre.  On  the basis  of  the  material placed before  the  High  Court  it reached the conclusion that if the reservation is  permitted in  the  vacancies after all the posts in cadre  are  filled then  serious  consequences  would ensure  and  the  general category  is  likely  to suffer  considerably.   We  see  no infirmity in the view taken by the High Court. 11.  We  may  examine the likely result  if  the  roster  is permitted  to  operate in respect of the  vacancies  arising after the total posts in a cadre are filled.  In a 100 point roster,  14 posts at various roster points are  filled  from amongst the scheduled Casts/ Scheduled Tribes candidates,  2 posts  arc filled from amongst the Backward Classes and  the remaining 84 posts are filled from amongst the general  cat- egory.   Suppose all the posts in a cadre consisting of  100 posts  are filled in accordance with the roster by  December 31, 1994.  Thereafter in the year 1995, 25 general  category persons (out of the 84) retire.  Again in the 1996, 25  more persons  belonging to the general category persons  (out  of the  84)  retire.  Again in the year 1996, 25  more  persons belonging  to  the general category  retire.   The  position which would emerge would be that the Sched- 359

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uled Casts and Backward Classes would claim 16% share out of the 50 vacancies.  If 8 vacancies are given to them then  in the  cadre  of  100 posts the reserve  categories  would  be holding 24 posts thereby increasing the reservation from 16% to  24%.   On  the contrary if the roster  is  permitted  to operate  till the total posts in a cadre are filled  by  the same  category of persons whose retirement etc.  caused  the vacancies then the balance between the reserve category  and the general category shall always be maintained.  We make it clear  that  in the event of non-availability of  a  reserve candidate at the roster-point it Would be open to the  State Government  to  carry forward the point in a just  and  fair manner. 12.  We,  therefore, find considerable force in  the  second point  raised  by the learned counsel for  the  petitioners. We,  however, direct that the interpretation given by us  to the  working  of the roster and our findings on  this  point shall be operative prospectively. 13.  The  writ petition is, therefore, disposed  of  in  the above terms.  No costs. 360