MD. RAISUL ISLAM Vs GOKUL MOHAN HAZARIKA .
Bench: ALTAMAS KABIR,CYRIAC JOSEPH, , ,
Case number: SLP(C) No.-019188-019188 / 2007
Diary number: 24127 / 2007
Advocates: SHANKAR DIVATE Vs
RAJIV MEHTA
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REPORTABLE
IN THE SUPREME COURT OF INDIA CIVIL APPELLATE JURISDICTION
SPECIAL LEAVE PETITION (C) NO.19188 OF 2007
Md. Raisul Islam & Ors. .. Petitioners
Vs.
Gokul Mohan Hazarika & Ors. .. Respondents
J U D G M E N T
ALTAMAS KABIR, J.
1. On the request of the Government of Assam to
select candidates by way of direct recruitment for
filling up 30 posts in each category of ACS Class-I
and ACS Class-II, the Assam Public Service
Commission, hereinafter referred to as ‘the ASPC’,
published an advertisement on 22nd May, 1984, for
the aforesaid purpose in terms of Rule 4 of the
Assam Civil Services (Class-I) Rules, 1960.
Subsequently, the Government of Assam informed the
APSC on 24th November, 1984, that a decision had
been taken to relax the upper age limit by two
years. Accordingly, a revised advertisement was
published by APSC on 28th November, 1984,
incorporating the decision to relax the upper age
limit by two years. Pursuant to the said
advertisement, a written test was conducted by the
APSC, as required under the aforesaid Rules,
hereinafter referred to as ‘the 1960 Rules’,
between 5th June, 1984, to 1st August, 1985, and the
results of the said written examination were
declared on 22nd February, 1986. Vive voce test was
thereafter conducted by the APSC from 25th April,
1986, to 30th May, 1986, in respect of those
2
candidates who had qualified in the written
examination. Thereafter, the APSC sent its list of
recommended candidates to the Government on 27th
June, 1986, for appointment to ACS Class-I and ACS
Class-II category officers.
2. On 21st July, 1986, vide Notification of even
date, the Government of Assam amended the proviso
to Rule 4(1) and Rule 4(1)(b) of the 1960 Rules
whereby the number of persons to be promoted from
ACS Class-II to ACS Class I was left to be
determined by the Governor and the earlier quota of
50 per cent for promotion was discontinued.
3. At this stage, reference may be made to Rule 4
of the 1960 Rules, as it stood prior to the
amendment of 21st July, 1986, namely,
“Rule 4(1). Recruitment to the service after the commencement of these Rules, shall be by the following methods, namely:
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(a) by competitive examination conducted by Commission;
(b) by promotion of confirmed members of the ACS (Class-II) who have passed the prescribed departmental examination and successfully completed the prescribed training under Sub- Rule(3)of Rule 14 of ACS (Class-II) Rules, 1962; and
(c) by selection, in special cases from among persons, other than members of the Assam Civil Service (Class-II) service in connection with the affairs of the Government;
Provided that the number of persons recruited under Clause (b) shall be 50 per cent of the total number of vacancies to be filled in a year and the persons recruited under Clause (c) shall not in any year exceed two; provided further that the persons recruited under Clause (c) shall not at any time exceed 5 per cent of the total strength of the cadre”.
4. As will be apparent from the above, under the
unamended Rules, the number of persons to be
recruited by way of promotion would be 50 per cent
of the total number of vacancies to be filled in a
year and the number of persons to be selected under
4
clause (c) in said cases was not to exceed 5 per
cent of the total strength of the cadre at any
time.
5. While the aforesaid process of filling up the
vacancies was being undertaken, the State
Government as indicated hereinabove, amended some
of the provisions of the 1960 Rules by the Assam
Civil Service (Class-I) (Amendment) Rules, 1986,
hereinafter referred to as ‘the 1986 Amendment
Rules’, which were directed to come into force at
once and were, therefore, given prospective
operation. The amendment with which we are directly
concerned in this case is Rule 2 of the Amendment
Rules, which reads as follows :-
“2. In the Principal Rules, in Rule 4 –
(a) for clause (b) of sub-rule (1), the following shall be substituted, namely:-
“(b)by promotion from amongst the ACS (Class-II) officers who have
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completed 5 years of continuous service in ACS (Class-II) on the first day of January of the year in which recruitment is made”
(b) for the proviso to sub-rule (1), the following shall be substituted, namely:-
“provided that the number of persons recruited under Clause (b) in any calendar year shall be such as may be determined by the Governor. Provided further that the persons recruited under Clause (c) shall not in any year exceed two and shall not, at any time exceed 5 per cent of the total strength of the cadre.”
6. The amended provisions of Rule 4, do away with
the quota of 50 per cent reservation for promotees
and the number of persons to be recruited in such
manner in any calendar year would after the
amendment be such as might be determined by the
Governor. In other words, the fixed quota of fifty
per cent for appointment by way of promotion was
replaced by a discretion given to the Governor to
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indicate the number of persons to be recruited by
way of promotion.
7. Pursuant to the aforesaid selection process,
129 ACS Class-II Officers, including the
petitioners, were regularly promoted as ACS Class-I
Officers on 11th September, 1986. Thereafter, on
22nd October, 1986, 45 ACS Class-I Officers,
including the Respondents, were appointed by way of
direct recruitment on the basis of the
recommendation made by the APSC. On 16th December,
1989, as a matter of policy, the State Government
merged the ACS Class-II Officers with ACS Class-I
Officers in order to eliminate the ACS Class-II
category. Pursuant thereto, on 1st January, 1993,
a draft gradation list of ACS Class-I Officers was
published by the State Government inviting
objections thereto. In the said list, all 129
Officers promoted on 11th September, 1986, were
shown as senior to the 45 ACS Class-I Officers, who
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had been appointed by way of direct recruitment on
various dates in the month of October, 1986.
8. Aggrieved by the above, the Respondent Nos.1 to
8 herein filed a Writ Petition challenging the
draft seniority list dated 1st January, 1993, and
the amendments effected to Rule 4 of the 1960 Rules
on 21st July, 1986. It may not be out of place to
take note at this stage of the fact that the
appointments of the petitioners and other similarly
situated promotees made vide notification dated 11th
September, 1986, were not challenged in the Writ
Petition, nor was the notice of the Writ Petition
served on them, although, they were made parties to
the proceedings. During the pendency of the Writ
Petition, the State Government published the final
seniority list of ACS Class-I Officers in which all
the 129 promotees were shown to be senior to the 45
direct recruits. It is the petitioners’ case that
8
the said seniority list was never challenged and
had attained finality long ago.
9. On 26th June, 2003, the learned Single Judge
of the High Court dismissed the Writ Petition
holding that although the process of selection had
been initiated long before the amendment of 1986,
the Government had decided not to make any
appointments till the Rules were amended. The
Respondent Nos.1 to 8 thereupon filed a Writ Appeal
before the Division Bench of the High Court which
was allowed on 26th August, 2006, upon the finding
that the seniority of direct recruits and promotees
would be governed by the unamended Rules as the
selection process was initiated prior to the 1986
amendments. The State Government was, accordingly,
directed to fix the seniority of the promotees and
direct recruits by applying the quota rule and to
fix the seniority of all 45 direct recruits of 1986
just below the 45 promotees, who had been promoted
9
to ACS Class-I service. It is the petitioners’
case that they had no knowledge about the Writ
Appeal as they were not served with notice thereof.
Review Petitions Nos.92 and 93 of 2006 were filed
on 9th November, 2006, by 12 of the
promotees/petitioners herein on the ground that
they had not been served with notice of the Writ
Appeal. Thereupon, the Division Bench on 13th
September, 2006, issued notice on the Review
Petitions and stayed the operation of the judgment
and order passed on 26th August, 2006. Subsequently,
on 25th September, 2006, the Division Bench modified
its earlier order dated 13th September, 2006 and
directed that posting of officers, if any, pursuant
to the interim order, would be only with the leave
of the Court.
10. On 13th November, 2006, the State Government
filed its counter affidavit in the matter and on
being satisfied that notice of the Writ Appeal had
10
not been served on the Review Petitioners, the
Division Bench permitted them to file their
affidavit in the Writ Appeal and the same was re-
heard along with the Review Petitions on merit.
It is on a re-hearing of the Writ Appeal and the
Review Petitions that the order impugned in Special
Leave Petition (Civil) No.19188 of 2007 came to be
passed on 23rd May, 2007.
11. In its counter affidavit filed in the Writ
Appeal, the State Government opposed the Writ
Appeal contending that seniority, upon merger of
the ACS Class-I and ACS Class-II Officers, had been
rightly fixed by the State. After considering the
submissions made on behalf of the parties, the
Division Bench, while allowing the Writ Appeal,
directed the authorities to ascertain the vacancies
available in the year 1986 for recruitment from
each source in terms of the quota fixed by Rule 4
of the 1960 Rules and to recast their seniority by
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rotating the vacancies following the quota and rota
rules. The said order of the Division Bench being
impugned in this Petition, this Court issued notice
to the parties on 12th November, 2007, and directed
status-quo to be maintained.
12. Appearing in support of the Special Leave
Petition, Mr. Vijay Hansaria, learned Senior
counsel, firstly referred to Rule 19 of the 1960
Rules dealing with seniority, which reads as
follows :
“Seniority: (1) The seniority of members of the service shall be determined according to the order of merit in the lists prepared under sub-rule (5) of Rule 5 or approved under Rule 8, if the members join their appointments within 15 days of the receipt of the order of appointment.
Provided that in case a member is prevented from joining within the said period of 15 days by circumstances of a public nature or for reasons beyond his control, the Governor may extend it for a further period of 15 days. If the period is not so extended and the member of the service joins within the period extended
12
under sub-rule (2) of Rule 15, his seniority shall be determined in accordance with the date of joining.
Provided further that the members of the service recruited in a year under clause (b) and (c) of Rule 4 shall be senior to members recruited in the same year and in the same batch under clause (a) of Rule 4.”
13. What is important for our purpose is the
second proviso which indicates that the number of
promotees in a year under Clauses (b) and (c) of
Rule 4 would be senior to members recruited by
direct recruitment in the same year and in the same
batch under Clause (a) of Rule 4. The language of
the second proviso to Rule 19 is clear and
unambiguous that in a year candidates promoted to
the higher post under Rule 4 would be senior to
candidates recruited in the same year and in the
same batch under Clause (a) of Rule 4 of the 1960
Rules.
13
14. Mr. Hansaria then drew our attention to Rule
26, which provides that “the seniority of members
of the service promoted to the senior grade time
scale, shall be in the order in which their names
are arranged by the Selection Board under Sub-Rule
(2) of Rule 25 for the purpose of promotion to that
grade.” Learned counsel also referred to Rule 27,
wherein the Governor of the State was also
empowered to dispense with or relax any Rule on
being satisfied that the operation of any of the
Rules caused undue hardship in any particular case.
Mr. Hansaria submitted that after the Amendment Act
was enacted on 21st July, 1986, whereby Rule 4 was
also amended, the Governor was given the power to
determine the number of ACS Class-II officers to be
promoted as a result whereof, the quota system in
relation to recruitment of ACS Class-I Officers was
discontinued. According to Mr. Hansaria, the quota
14
system had broken down, necessitating the
amendment.
15. Mr. Hansaria contended that the direct recruits
had been appointed long after the appointment by
promotion of the Petitioners under the Rules and
could not, therefore, be given seniority over the
promotees. Mr. Hansaria submitted that in this
petition what was of utmost importance was not the
question of recruitment, but how seniority was to
be determined inter se with those who had been
promoted earlier. The question posed is: Would the
rules relating to seniority which were applicable
at the time of recruitment also determine seniority
even if the Rules were subsequently altered?
16. Mr. Hansaria submitted that since the quota
and rota rule had not been followed over the years,
the same was discontinued by virtue of the
amendments to the 1960 Rules which became effective
15
from 21st July, 1986. Although, the said amendments
were challenged by the respondents, such challenge
was later given up. Despite the above, the High
Court quite erroneously relied on the unamended
Rules in arriving at a final decision in the
appeal. Mr. Hansaria urged that when the Rules
relating to quota had been discontinued by the 1986
Amendment, the High Court erred in not following
the Amended Rules which came into effect on 21st
July, 1986, after the recruitment of both the
petitioners as well as the respondents herein. Mr.
Hansaria contended that even if the quota Rule is
held to be applicable, the same had broken down on
account of not having been followed for a long
period of time, seniority had to be fixed by
applying the amended Rules.
17. Mr. Hansaria then urged that it was a well-
settled principle that direct recruits cannot claim
appointment from the date on which the vacancy in
16
the quota for direct recruitment occurred before
their selection, which principle had been
incorporated in the proviso to Rule 4(b) of the
1960 Rules, as amended.
18. In this regard, Mr. Hansaria referred to the
decision of this Court in Suraj Parkash Gupta &
Ors. vs. State of J & K and Ors. [(2000) 7 SCC
561], wherein the very same question fell for
consideration and this Court observed that in
service jurisprudence, a direct recruit can claim
seniority only from the date of his regular
appointment and not from the date when he was not
even born in the service. Reference was also made
to the decision of this Court in State of
Uttaranchal & Anr. vs. Dinesh Kumar Sharma [(2007)
1 SCC 683], where the earlier decision in Suraj
Parkash Gupta’s case (supra) was reiterated and it
was re-emphasized that a person appointed on
promotion cannot get seniority of any earlier year
17
but shall get the seniority of the year in which
his/her appointment is made. Several decisions
were also cited by Mr. Hansaria on the same lines,
to which reference will be made, if necessary.
19. Mr. Hansaria contended that the High Court had
committed an error in relying upon the unamended
provisions of Rule 4 of the 1960 Rules, instead of
relying upon the amended Rules which were relevant
to the case of the respondents since the quota
Rules had broken down when the process of recording
seniority had been commenced.
20. Mr. Parthiv Goswami, learned Advocate,
representing the Respondent Nos.1 to 8 pointed out
that Rule 4(1) provided the method of recruitment
to the service and the proviso to the said Rule
provided that 50% of the total vacancies in a given
year was to be filled up by promotion of confirmed
members of the Assam Civil Service (Class-II).
18
Furthermore, Rule 19(1) provided that the promotees
would be senior to direct recruits in case of
appointment in the same year and in the same batch.
Mr. Goswami contended that the State Government on
21st July, 1986, amended Rule 4 and the Governor was
authorized thereunder to determine the number of
promotees to be accommodated, but as rightly
pointed out by the Division Bench, the amended
Rules would not apply to the direct recruits whose
selection process had commenced under the unamended
Rules.
21. Mr. Goswami submitted that promotees appointed
in excess of the quota reserved for them could only
be described as ad hoc and seniority could not be
given to such promotees on the basis of such ad hoc
promotions. In support of his submissions Mr.
Goswami referred to the decision of this Court in
Uttaranchal Forest Rangers’ Assn. (Direct Recruit)
vs. State of U.P. [(2006) 10 SCC 346], wherein the
19
said proposition was approved and it was further
held that promotees who were appointed in 1991
could not claim seniority over direct recruits who
were substantively appointed at a prior point of
time in 1990.
22. Reference was also made to the decision of
this Court in N.T. Devin Katti vs. Karnataka Public
Service Commission [(1990) 3 SCC 157], wherein it
was held that appointment made in terms of an
advertisement published prior to amendments
effected to the Rule or Order would normally not be
affected by the amendment. In other words, where
the selection process is initiated by issuing an
advertisement inviting applications, selection
normally should be regulated by the Rule or Order
then prevailing. Several other decisions were also
referred to where the same principles have been
explained. Mr. Goswami submitted that the process
of selection in the instant case had commenced
20
before the amendments came into force and since it
was held that only prospective operation could be
given to the amended Rules, the process of
selection started under the unamended Rules would
have to be continued and completed thereunder.
Mr. Goswami submitted that the submissions made on
behalf of the petitioners that the selection would
be in accordance with the amended Rules was
contrary to the law as established and was,
therefore, liable to be rejected.
23. We have carefully considered the submissions
made on behalf of the respective parties and the
decisions cited by them. The point at issue in
this SLP is confined to the question as to whether
the 1960 Rules as amended would govern the
seniority of the persons recruited in the process
of selection commenced earlier to the amendment. It
is not disputed that an advertisement was published
on 22nd May, 1984, for filling up 30 posts in each
21
category of ACS Class-I and ACS Class-II Officers
in terms of unamended Rule 4 of the 1960 Rules and
that a written test was conducted by the APSC under
the said Rules between 5th June, 1984 and 1st August,
1985 and the result of the said written examination
was declared on 22nd February, 1986. Viva-voce test
was conducted by the APSC from 25th April, 1986, to
30th May, 1986, in respect of those candidates who
had qualified in the written examination. A list of
recommended candidates was thereafter submitted by
the APSC to the Government on 22nd June, 1986. It
is also not disputed that soon thereafter on 21st
July, 1986, the proviso to Rule 4(1) and Rule
4(1)(b) of the 1960 Rules were amended whereby the
quota system was sought to be discarded and
discretion was given to the Governor to determine
the number of appointments to be made by way of
promotion in a given case.
22
24. It is evident from the chronological list of
events that the process of selection for filling up
the 30 posts in each category of ACS Class-I and
ACS Class-II Officers commenced with the
publication of the advertisement inviting
applications which was published on 22nd May, 1984.
Pursuant thereto, written examinations were also
held and the result of the written examinations was
declared on 22nd February, 1986, and after
completion of the viva-voce test, a list of
recommended candidates was submitted by the APSC to
the Government on 22nd June, 1986. The amendment to
Rule 4 came subsequently on 21st July, 1986. The
submission advanced on behalf of the Respondent
Nos.1 to 8 herein is that once the process had
commenced under the unamended Rules, appointments
would have also to be completed under the said
Rules, even though the Rules were amended in the
meantime. The Division Bench of the High Court,
23
while re-hearing the Writ Appeal and the Review
Petitions, reiterated the views expressed earlier
on 26th August, 2006, holding that the seniority of
direct recruits and promotees would be governed by
the unamended Rules as the selection process was
initiated prior to the 1986 amendments.
Consequently, the Division Bench also held that the
seniority between the promotees and direct recruits
was to be determined on the basis of the quota
fixed for recruitment from each source under Rule 4
of the 1960 Rules on the basis of the vacancies
available in the calendar year, by applying quota
and rota selectees to the extent of the vacancies
in their quota as envisaged in the proviso to Rule
4(1) of the Rules as they stood prior to the 1986
amendments. The Division Bench, accordingly,
amended its earlier judgment dated 24th August, 2006
and set aside the provisional seniority list of ACS
Class-I Officers with the aforesaid modification
24
and directed the authorities to recast the
seniority in accordance with the said directions.
While arriving at the aforesaid decision, the
Division Bench had occasion to refer to the
decision of this Court in Dr. K. Ramulu & Anr. vs.
Dr. S. Suryaprakash Rao & Ors. [(1997) 3 SCC 59],
wherein the question which fell for consideration
was whether the Government was entitled to take a
decision not to fill up existing vacancies on the
relevant date unless the process of amendment was
completed. This Court, after taking into
consideration Rule 4 of the A.P. Subordinate
Service Rules, held that the object of the said
Rule was that all eligible candidates should be
considered in accordance with the Rules. This
Court held that the Government was entitled to take
a conscious decision not to fill up any of the
vacancies before the proposed amendment to the
Rules was effected.
25
25. While at first glance the decision in K.
Ramulu’s case (supra) may appear to be at par with
the facts of the instant case, there is yet a
distinction which cannot be ignored. While in the
present case a process of selection had been set in
motion under the existing Rules and a list of
selected candidates had also been recommended by
the APSC, in K. Ramulu’s case (supra) the
Government had merely taken a decision not to fill
up the vacancies until the amended Rules came into
force. In K. Ramulu’s case (supra) no process had
been initiated for the purpose of filling up any of
the vacancies. In such circumstances, where no
candidate had either been invited or interviewed or
selected for appointment, as has been done in the
instant case, this Court rightly held that the
Government was competent to take a decision not to
fill up the vacancies.
26
26. There can be no dispute that as a matter of
policy the Government may take a conscious decision
not to fill up vacancies for justifiable reasons,
but at the same time, having started a process of
selection under the unamended Rules, it cannot take
the stand that it still was entitled not to make
appointments of persons from amongst the candidates
selected in terms of the process initiated under
the old Rules. In fact, in the instant case, the
recommendation made by the APSC was submitted to
the Government on 22nd June, 1986, before the
amended Rules came into operation on 21st July, 1986
whereby the quota system was discarded. In such a
situation, in our view, the decision in K. Ramulu’s
case (supra) cannot be applied to the facts of this
case.
27. We are unable to agree with Mr. Hansaria that
the High Court had committed an error in relying on
the unamended Rules since the law has been well
27
settled that the process of selection commenced on
the basis of the Rules then in existence would
continue under the said Rules, even though the
Rules may have been amended in the meantime.
Accordingly, the seniority of members of the
service would, no doubt, be governed under Rule 19,
but the selection process has to be completed under
Rule 4 in order to attract the provisions of Rule
19. The vacancies for which the advertisement had
been published in 1984 were directed to be filled
up by the High Court on the basis of the unamended
Rule 4 which provided for quota between promotees
and direct recruits and, accordingly, placed 45 of
the direct recruits immediately below the first 45
promotees out of the list of 129 promotees in
keeping with the said quota system for the year
1986.
28. We agree with the view taken by the High Court
which has been reiterated by Mr. Goswami in keeping
28
with the well-established principle that once a
process of selection is started on the basis of the
existing Rules of recruitment, the said Rules will
continue to govern the selection process,
notwithstanding any amendment which may have been
effected to the said Rules in the meantime.
29. The decision of the High Court does not,
therefore, warrant any interference and the Special
Leave Petition is, accordingly, dismissed, but,
without any order as to costs.
________________J. (ALTAMAS KABIR)
________________J. (CYRIAC JOSEPH)
New Delhi, Dated: July 06, 2010.
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ITEM No.1-A Court No.2 SECTION II-A (for judgment)
S U P R E M E C O U R T O F I N D I A RECORD OF PROCEEDINGS
SLP(C) NO. 19188/2007
MD. RAISUL ISLAM & ORS. PETITIONER (s)
VERSUS
GOKUL MOHAN HAZARIKA & ORS. Respondent (s)
Date : 06/07/2010 This Petition was called on for judgment today. For Appellant (s) Mr. Shankar Divate,Adv.
For Respondent(s) Mr. Rajiv Mehta,Adv. For M/s Corporate Law Group,Advs.
Hon'ble Mr. Justice Altamas Kabir
pronounced the Judgment of the Bench
comprising His Lordship, and Hon'ble Mr.
Justice Cyriac Joseph.
The Special Leave Petition is
dismissed in terms of the signed judgment
placed on the file.
(Ganga Thakur) (Juginder Kaur) P.S. to Registrar Court Master
(Signed Reportable judgment is placed on the file.)
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