REPORTABL E

IN THE SUPREME COURT OF INDIA CIVIL APPELLATE JURISDICTION

CIVIL APPEAL NO. 4360 OF 2010

STATE OF U.P. & ORS.                APPELLANT(S)

 VERSUS

SANGAM NATH PANDEY & ORS.         RESPONDENT(S)

WITH

CIVIL APPEAL NO. 4381 OF 2010

U.P. PUBLIC SERVICE COMMISSION  APPELLANT(S)

 VERSUS

MANOJ KUMAR SINGH & ORS.          RESPONDENT(S)

J U D G M E N T

SURINDER SINGH NIJJAR, J.

1. This  appeal  has  been  filed  by  the  State  of  Uttar  

Pradesh challenging the order passed by the High Court  

of Judicature at Allahabad, in Special Appeal No.1202 of  

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2006  whereby  the  Division  Bench  of  the  High  Court  

observed  that  the  action  of  the  State  in  treating  

367  vacancies  belonging  to  the  reserved  category  as  

backlog  vacancies  was legally  not  justified  and further  

issued a direction to the State Government to declare the  

result afresh in respect of these vacancies as if they are  

not  backlog  vacancies  and  that  appointments  may  be  

offered in terms of the roster provided under notification  

dated 25th  May, 2002 issued in exercise of powers under  

Section 3 (5) of the U.P Act No. 4 of 1994.   

2. In  order  to  appreciate  the  factual  and  legal  

controversies raised in this matter, it would be necessary  

to notice the various legislative provisions which govern  

the field of reservation in Public Services, in the State of  

Uttar Pradesh.  Initially, the reservation in public services  

in  the  State  of  Uttar  Pradesh  was  regulated  through  

various  Government  orders,  issued  from  time  to  time.  

The   Uttar  Pradesh  Public  Services  (Reservation  for  

Scheduled Castes, Scheduled Tribes and Other Backward  

Classes) Act, 1994 (U.P. Act No. 4 of 1994) (hereinafter  

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referred to as “1994 Act”)  was enacted by the State of  

Uttar  Pradesh  following  the  judgment  of  this  Court  in  

Indra Sawhney Vs.  Union of India1.  The aforesaid act  

repealed  the  Uttar  Pradesh Public  Services  (Regulation  

for Backward Classes) Act, 1989 and the Uttar Pradesh  

Public  Services  (Reservation  for  Scheduled  Castes  and  

Scheduled  Tribes)  Act,  1993  and  the  Uttar  Pradesh  

Public  Services  (Reservation  for  Scheduled  Castes,  

Scheduled  Tribes  and  the  other  Backward  Classes)  

Ordinance, 1994.   

3. The  1994  Act  itself  was  amended  by  the  Uttar  

Pradesh  Public  Service  (Reservation  for  Scheduled  

Castes, Scheduled Tribes and Other Backwards Classes)  

(Amendment) Act, 2001(U.P. Act No. 21 of 2001).  Some  

provisions of this Act were challenged in this Court in a  

writ  petition.   This  Court,  by  Interim  Order  

dated  21st January,  2002  directed  that  no  executive  

order, in pursuance of the aforesaid Act of 2001, shall be  

passed during the pendency of the writ petition.  Since a  1 (1992) Supp 3 SCC 217

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large  number  of  vacancies  in  public  service  is  lying  

vacant, the State of Uttar Pradesh decided to restore the  

original  position  as  obtained  under  the  1994  Act,  i.e.  

before the amendment by the U.P. Act No. 21 of 2001.  

Thereafter,  the Governor of Uttar Pradesh on 6th June,  

2002  promulgated  the  Uttar  Pradesh  Public  Services  

(Reservation for Scheduled Castes, Scheduled Tribes and  

Other Backwards Classes) (Amendment) Ordinance 2002.  

This  was  subsequently  replaced  by  the  Uttar  Pradesh  

Public  Services  (Reservation  for  Scheduled  Castes,  

Scheduled  Tribes  and  Other  Backwards  Classes)  

(Amendment) Act, 2002 (U.P. Act No. 1 of 2002).

4. Under the 1994 Act, very comprehensive provisions  

have  been  made  to  provide  for  reservation  in  Public  

Services and Posts in favour of the person belonging to  

Scheduled Castes, Scheduled Tribes and Other Backward  

Classes of citizens and for matters connected therewith  

or  incidental  thereto.   Section  3  of  the  aforesaid  Act  

provides  certain  percentages  of  vacancies  reserved  for  

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different categories of backward classes of citizens.  The  

following percentages were prescribed:-

Scheduled Castes 21%

Scheduled Tribes     2%

Other Backward Classes 27%

These vacancies were to be filled in accordance with the  

roster provided under sub-section 5 of Section 3.  The  

aforesaid percentages remained the same even under the  

amended Section 3 as contained in the Amendment Act,  

2002.   In  accordance  with  the  aforesaid  formula,  a  

requisition  was  made  by  the  Irrigation  Department  

Government of Uttar Pradesh on 20th October,  1999 to  

the  Uttar  Pradesh  Public  Service  Commission,  for  

initiating the process of  selection of  candidates for  the  

posts of Junior Engineer (Civil). Pursuant to this request,  

an advertisement was issued on 22nd December, 2000 for  

filling up 945 such posts. The last date for making the  

applications was 27th January, 2001. The break up of the  

said posts sought to be filled up was as follows:

477 general category

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257 backward classes

200 Schedule Caste category

The written  examinations  were  conducted  on 22nd/23rd  

December,  2001.  The  aforesaid  examination  was  

conducted  without  taking  into  consideration  the  

reorganization  of  the  State  of  Uttar  Pradesh  and  the  

creation  of  the  State  of  Uttaranchal  on  9th November,  

2000.   There was a 2 per cent reduction in vacancies  

upon creation of the aforesaid new State.  There was also  

an  increase  in  the  number  of  available  vacancies  by  

inclusion of the recruitment year 2003-2004.  Thus, the  

total number of posts against which the selection was to  

be conducted was reduced from 954 to 887.  The break  

up was as follows:-

General Category 260

Backward Classes 391

Scheduled Castes 223

Scheduled Tribes  13

Consequently,  by  letter  dated  6th November,  2003,  the  

State  Government  informed  the  Public  Service  

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Commission to take further  action for  selection of  887  

posts for the year 2003-2004 as opposed to the earlier  

requisition  for  954  posts.   Acting  upon  the  aforesaid  

requisition,  the  result  of  the  written  examination  was  

declared on 6th October, 2005.   

Thereafter  by  a  letter  dated  13th October,  2005,  the  

Government  informed  the  Public  Services  Commission  

that at the time of sending of the original requisition, the  

posts  of  reserved  category  have  been  incorrectly  got  

included in the general selection process.  Therefore, the  

requisition be amended.  In this requisition, the following  

description of the general selection posts was given and a  

request was made to initiate the process of selection:-  

General Category 260

Scheduled Castes 109

Scheduled Tribes  10

Backward Classes 141

Thereafter,  the  Government  addressed  another  letter  

dated  25th October,  2005  to  the  Public  Service  

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Commission  with  a  request  to  initiate  the  process  of  

selection of  the vacant posts  meant exclusively  for  the  

reserved  categories  of  Scheduled  Castes,  Scheduled  

Tribes and Backward Classes.  It was stated that there  

are a total number of 367 posts in the aforesaid reserved  

categories  for  which,  it  was  necessary  to  initiate  the  

process of selection as a special recruitment.  The break  

up of the posts category wise was:-

Scheduled Castes 114

Scheduled Tribes     3

Backward Classes 250

5.  The  Public  Service  Commission,  thereafter,  

initiated  the  selection  process  by  incorporating  the  

various changes noticed above.  Consequently, an option  

was given to the reserved category candidates as to their  

choice  for  being  considered  against  the  520  posts  of  

general  recruitment  or  against  367  posts  of  special  

recruitment meant exclusively for the reserved category.  

The reserved category candidates  appear  to have given  

their option for the Special recruitment category of 367  8

posts.  The  interview  was  held  thereafter  between  

21st November, 2005 to 12th January, 2006 for 520 posts  

for  general  recruitment  and  367  posts  for  special  

recruitment.  The  final  results  were  declared  

on 12th March, 2006.  It is not disputed that respondent  

No. 1 to 3 and 5 had qualified in the written examination  

and  had  appeared  in  the  interview.   It  is  also  not  

disputed  that  all  these  respondents  remained  

unsuccessful in the final selection.     

6. Aggrieved  by  the  exclusion  of  367  posts  for  the  

special  recruitment,  eight  unsuccessful  candidates  

belonging to the General category filed four writ petitions  

in the High Court of Judicature at Allahabad.  It was the  

claim  of  the  writ  petitioners  that  the  advertisement  

dated 20th/22nd December, 2000 was to fill the 954 posts,  

which was subsequently modified to 887.  50 per cent of  

the  posts  were  reserved  for  different  categories  of  

Scheduled Castes, Scheduled Tribes and Other Backward  

Classes.   The  petitioners  had  no  grievance  about  the  

reduction of vacancies as indicated above.  They also do  

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not have any grievance about the 50 per cent of the posts  

reserved for the different categories.  The only grievance  

made  by  the  writ  petitioners  is  the  exclusion  

of  367  vacancies  on  the  basis  that  they  are  backlog  

vacancies  which have  remained unfilled  and are  to  be  

filled up by way of a special recruitment.  According to  

them, by exclusion of 367 vacancies, the total vacancies  

for  the general  recruitment have been reduced to 520.  

This  has  unnecessarily  resulted  in  a  reduction  of  the  

posts which could be filled by all  the categories in the  

general  recruitment.   The  petitioners  claimed  that  the  

exclusion of 367 vacancies from the general recruitment  

was without any legal sanction.  It was the case of the  

petitioners  that  a  vacancy  can  only  be  declared  as  a  

backlog vacancy provided there was a complete selection  

procedure  in  any  recruitment  year  and  the  vacancy  

remained unfilled.  Since there had been no efforts earlier  

to fill in all the 367 posts and declared as backlog, the  

exclusion of the same from the general recruitment was  

illegal.   

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7. The learned single Judge upon consideration of the  

various facts concluded that the general strength of the  

cadre  being  4217  posts,  50  per  cent  of  the  general  

category would be 2066 posts.  Out of these 2066 posts,  

1808 posts  were  already  occupied and only  260 posts  

were available for the non-reserved category.  The learned  

single Judge further observed that in view of the number  

of posts occupied by the general category, it cannot be  

said  that  there  has  been  any  choking  of  the  general  

category  as  indicated  in  the  case  of  Indra  Sawhney  

(supra).  By reducing the number of posts for the general  

category,  the  objective  of  reservation  policy  is  being  

achieved.  The learned single Judge relied on the letter  

dated  4th July,  2006  to  conclude  that  the  State  had  

endeavored to achieve the object of reservation without  

prejudicing the claim of the general category candidates.  

The learned single Judge also observed that  

“a perusal of section 3 of the act indicates that it  is  not  necessary  for  any  vacancy  having  been  advertised on an earlier occasion in order to carry  out  the  special  recruitment.   The  special  recruitment has to be made with the sole objective  of achieving the target of unfilled vacancies of the  reserve  category  after  applying  the  roster.   The  State Government, in the opinion of the Court, has  

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segregated  the  367  posts  as  posts  for  special  recruitment  in  view of  the  fact  that  these  posts  exclusively  belong  to  the  reserved  category  remains undisputed.  The petitioner, who belongs  to the general category, therefore, cannot have any  right or claim against the said posts, even if, they  have  been  advertised  by  the  State  Government.  The posts, which are meant to be filled up by the  reserved category, cannot be offered to the general  category candidates.  In this view of the matter,  the State Government, has to apply the roster in  order to achieve the target.  The questions as to  whether  they are  backlog vacancies  or  not  need  not to be probed any further in view of  the fact  that the applicability of the roster against the said  posts  has  to  be  determined.   The  aforesaid  discussions,  therefore,  leave  to  only  one  conclusion  that  the  State  Government  has  not  over stepped the 50 per cent reservation quota but  the selections have to be finalized after applying  the roster.”

8. The learned single Judge concluded that the 50 per  

cent limit as provided in the second proviso has not been  

transgressed by the State in offering the 367 vacancies  

for  special  recruitment  as  backlog  vacancies.   It  is,  

however,  observed that the State  Government ought to  

undertake the exercise of carrying out the calculation of  

the exact number of vacancies on the basis of the roster  

provided under Section 3, sub-section 5 of the 1994 Act.  

The  writ  petitions  were  disposed  of  with  the  aforesaid  

observations.   

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9. Aggrieved against the aforesaid, the writ petitioners  

preferred  Special  Appeal  No.  1202  of  2006  before  the  

Division  Bench.   The  Division  Bench  recorded  the  

following conclusions:-

“In view of the aforesaid we clarify that the backlog  vacancies with reference to Clause 2 of Section 3  of U.P. Act No. 4 of 1994 as amended by U.P. Act  No. 1 of  2002 necessarily  mean those vacancies  within the reserved category which were  subject  matter  of  an earlier  advertisement but remained  unfilled  because  of  non  availability  of  suitable  candidates  within  the  reserved  category  after  selection.  It is only in respect of such vacancies  that the procedure qua backlog vacancies can be  adopted.  We may further clarify that any vacancy  in the reserved category (however old it may be), if  it had not been advertised earlier and was not a  part of an earlier process of selection which was  completed,  the  same  cannot  be  termed  to  be  a  backlog vacancy.   

In the facts and circumstances of the present case  it  is  not  in  dispute  that  the  total  number  of  vacancies  which  were  advertised  earlier  i.e.  954  but subsequently reduced to 887 were not covered  by any earlier advertisement nor were part of any  process  of  selection  and,  therefore,  none  of  the  vacancies  which  were  subject  matter  of  the  advertisement  in  question  (belonging  to  the  reserved  category)  can  be  termed  to  be  backlog  vacancy.   Therefore,  the  action  of  the  State  respondents  treating 367 vacancies  belonging  to  the  reserved  category  as  backlog  vacancies  is  legally not justified.  Respondents are directed to  declare  the  result  afresh  in  respect  of  these  vacancies as if they are not backlog vacancies and  appointments may be offered in terms of the roster  provided  for  under  notification  dated  25th May,  

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2002 issued in exercise of powers under Section  3(1) read with Section 3(5) of the U.P. Act No. 4 of  1994.  The aforesaid exercise may be completed by  the State respondents within two months from the  date a certified copy of this order is filed before the  authority concerned.”  

10.We have heard the counsel for the parties.  

11.Mr. Dwivedi appearing for the State of U.P. submits  

that  the  directions  issued  by  the  Division  Bench  

would only unsettle the settled position. He submits  

that       703 posts have been filled up against 887  

posts that were advertised. Further 183 posts would  

be filled in compliance with the interim order of the  

Division  Bench.  All  the  selected  candidates  have  

joined  and  have  completed  almost  three  years  of  

service.  The implementation of  the directions of  the  

High  Court  would  create  legal  as  well  as  

administrative complication. He further submits that  

367  posts  which  were  segregated  for  special  

recruitment do not, in any manner, infringe the rights  

of the general category candidates. According to him,  

a conjoint reading of the second proviso to         sub-

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section (1) of Section 3 and sub-sections (2) and (5) of  

the  said  Section  makes  it  abundantly  clear  that  so  

long as the reservation does not exceed 50 per cent of  

the  cadre  strength,  the  general  category  candidates  

can  have  no  objection  in  the  special  recruitment  

undertaken in order to complete the 100 points roster.  

According to the learned counsel, the Division Bench  

has  misconstrued  Section  3  in  concluding  that  the  

action  of  the  State  Government  in  treating  367  

vacancies as backlog was legally not justified.  

12. Making a reference to the letter dated 4th July, 2006,  

it was submitted by Mr. Dwivedi that the State has  

endeavoured to achieve the object of the reservation  

without prejudicing the claim of the general category  

candidates.  He  pointed  out  that  out  of  the  total  

sanctioned strength of the cadre of 4127 posts, 50 per  

cent for general category would be 2066 posts. Out of  

that  share,  the  general  category  already  occupied  

1808 posts leaving a balance of 260 posts which were  

available  to be filled up for  general  category.  Under  

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the  earlier  advertisement  dated  22nd of  December,  

2000, the break up of the vacancies was as under :

(i) No. of vacancies 954

(ii) Posts for Scheduled Castes 200

(iii) Posts for Scheduled Tribes  20

(iv) Posts for O.B.C.  257

(v) General Category 477

This would have been in excess of 50 per cent which is  

impermissible under the law settled by this Court in the  

case of Indra Sawhney (supra), and R.K. Sabharwal  &  

Ors Vs.  State of Punjab & Ors.  2  .  According to him, it  

would also be contrary to the provisions contained under  

Section  3  of  the  Uttar  Pradesh  Public  Services  

(Reservation for Scheduled Castes, Scheduled Tribes and  

Other Backward Classes) Act 1994 as amended by Act  

No.  1  of  2002.  The  total  number  of  vacancies  were  

reduced to 887 out of which 520 earmarked for general  

recruitment  to  ensure  that  the  general  category  gets  

260  vacancies  i.e.  50  per  cent  of  the  total  available  

2(1995) 2 SCC 745 16

vacancies  in the  cadre.  Remaining 367 vacancies  were  

treated as backlog vacancies for the reserved categories.  

Merely because the vacancies were not advertised would  

not  render  the  action  of  the  State  Government  illegal.  

Mr. Dwivedi also submits that all the appellants having  

participated in the selection process cannot be permitted  

to  challenge  the  same  merely  because  they  have  

remained unsuccessful. This apart, no relief could have  

been given to the appellants as the selected candidates  

have not been made parties.  

13. On  the  other  hand,  Mr.  Francis  appearing  for  the  

respondents submits that by excluding 367 vacancies  

and earmarking the same for special recruitment, the  

State of U.P. has infringed the 50 per cent rule in the  

year  of  recruitment  as well  as  in  the  cadre.  Laying  

considerable stress on the second proviso to Section 3  

of the Amendment Act, 2002, he has submitted that  

the  total  reservation  for  all  categories  of  persons  

cannot exceed in any year of recruitment 50 per cent  

of the total vacancies of that year as also 50 per cent  

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of  the  cadre  strength  of  the  service  to  which  the  

recruitment  is  to  be  made.  On  the  basis  of  the  

calculation made by the State and by excluding 367  

posts as backlog, the State has reduced the strength  

of the percentage meant for the general recruitment  

category. The recruitment of the reserved category has  

gone  up  to  71  per  cent  as  against  50  per  cent.  

According to the  learned counsel,  the  interpretation  

placed  on  the  statutory  provisions  by  the  Division  

Bench is in accordance with the law declared by this  

Court in Indra Sawhney and R.K. Sabharwal’s case  

(supra). It is also in accordance with the law settled  

by this Court in the case of M. Nagaraja Vs. Union of  

India  3    and  Ramesh  Kumar Vs.  High  Court  of  

Delhi  4  . According to the learned counsel, the Division  

Bench merely directed the State Government to follow  

the mandate of the statue as well as the law declared  

by  this  Court  by  directing  the  State  to  declare  the  

result  afresh  in  respect  of  367  vacancies  by  not  

treating them as backlog vacancies and thereafter to  

3 (2006) 8 SCC 212 4 (2010) 3 SCC 104

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offer  appointments  in  terms  of  the  roster  provided  

under notification dated       25th May, 2002.  

14.We  have  considered  the  submissions  made  by  the  

learned counsel for the parties. The entire controversy  

in  this  case  centres  around  the  decision  of  the  

State  Government  to  treat  the  unfilled  vacancies  

undoubtedly  falling  to  the  share  of  the  reserved  

categories as backlog vacancies. In order to determine  

as  to  what  would  be  the  backlog  vacancies,  it  is  

necessary to have a look at the relevant provisions of  

the  Uttar  Pradesh  Public  Services  (Reservation  for  

Scheduled  Castes,  Scheduled  Tribes  and  Other  

Backward Classes) Act 1994 as amended by the Act  

No. 1 of 2002.  

“2 (d) “year of recruitment” in relation to a vacancy  means a period of twelve months commencing on  the first of July of a year within which the process  of direct recruitment against which such vacancy  is initiated.  

Amendment  of  Section  3  –  In  Section  3  of  the  Principal Act, -

(a) for sub-sections (1), (2) and (3) the following  sub-section shall be substituted, namely :-

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(1) In public services and posts, there shall be  reserved at the stage of  direct recruitment,  the  following  percentage  of  vacancies  to  which  recruitments  are  to  be  made  in  accordance  with  the  roster  referred  to  in  sub-section  (5)  in  favour  of  the  persons  belonging  to  Scheduled  Castes,  Scheduled  Tribes  and  Other  Backward  Classes  of  citizens –  

 (a) in the case of Scheduled Castes Twenty one percent  (b) in the case of Scheduled Tribes  Two percent (c) in the case of Other Backward   Twenty seven percent

             Classes of citizens

Provided that the reservation under clause © shall  not  apply  to  the  category  of  Other  Backward  Classes of citizens specified in Schedule II :

Provided further that reservation of vacancies for  all  categories of persons shall  not exceed in any  year  of  recruitment  fifty  percent  of  the  total  vacancies of that year as also fifty percent of the  cadre  strength  of  the  services  to  which  the  recruitment is to be made.

(2) If, in respect of any year of recruitment any  vacancy reserved for any category of persons  under sub-section (1) remains unfilled, such  vacancy  shall  be  carried  forward  and  be  filled  through  special  recruitments  in  that  very year or in succeeding year or years of  recruitment as a separate class of  vacancy  and  such  class  of  vacancy  shall  not  be  considered together with the vacancies of the  year of recruitment in which it is filled and  also  for  the  purpose  of  determining  the  ceiling of fifty percent reservation of the total  vacancies  of  that  year  notwithstanding  anything to the contrary contained in sub- section (1) ;

(3) Where a vacancy reserved for the Scheduled  Tribes  remains  unfilled  even  after  three  

20

special  recruitments  made  under  sub- section (2), such vacancy may be filled from  amongst  the  persons  belonging  to  the  Scheduled Castes.”

(b) (i)  Sub-sections  (3-A),(3-B)  shall  be  omitted; (ii) Sub-section (4) shall be omitted;

(c) for sub-section (5),  the following sub- section shall be substituted, namely :-

“(5) The State Government shall for applying  the reservation under sub-section (1),  by a  notified order, issue a roster comprising the  total cadre strength of the public service or  post  indicating  therein  the  reserve  points  and  the  roster  so  issued  shall  be  implemented  in  the  form  of  a  running  account  from  year  to  year  until  the  reservation for various categories of persons  mentioned in sub-section (1) is achieved and  the operation of the roster and the running  account  shall,  thereafter,  come  to  an  end,  and  when  a  vacancy  arises  thereafter  in  public service or post the same shall be filled  from amongst the persons belonging to the  category  to  which  the  post  belongs  in  the  roster.”     

15. A bare perusal of the above would show that the Act  

regulates the extent of reservation in Public Services and  

Posts  in  favour  of  the  persons belonging  to  Scheduled  

Castes, Scheduled Tribes and Other Backward Classes of  

citizens  and  for  matters  connected  therewith  or  

incidental thereto.  It  also provides for a self-contained  

mechanism  as  to  how  the  posts  shall  be  distributed  21

among  the  different  categories  according  to  100  point  

roster.  The second proviso to Section 3, which is relevant  

to matter in issue herein, stipulates that reservation of  

vacancies for all categories of persons shall not exceed in  

any  year  of  recruitment,  50  per  cent  of  the  total  

vacancies of that year as also 50 per cent of the cadres  

strength of the service to which the recruitment is to be  

made.   The  proviso  clearly  postulates  a  two-fold  

restriction  on  the  extent  to  which  vacancies  can  be  

reserved  in  a  year  of  recruitment  as  also  the  cadre  

strength of the service.   It is clearly provided that in any  

year  of  recruitment  reservations  of  vacancies  for  all  

categories of persons shall not exceed 50 per cent of the  

total vacancies of the year of recruitment in which such  

recruitment takes place.  Under the second part of the  

proviso, reservation can also not exceed 50 per cent of  

the cadre strength of the service to which recruitment is  

to be made.   

16. In  any  recruitment  year,  it  may  happen  that  the  

candidates belonging to the reserved category may not be  

22

available to fill the vacancies falling to the share of the  

particular reserved category. In such circumstances, sub-

section (2) of Section 3 enables the State to carry forward  

the  unfilled  vacancy/vacancies  to  be  filled  through  

special recruitment as a separate class of vacancy.  Such  

class  of  vacancy  can  not  be  intermingled  with  the  

vacancies of the year of recruitment in which it is filled.  

It also can not be counted for the purpose of determining  

of ceiling of 50 per cent reservation of the total vacancies  

of that year.  The provision contained in sub-section 2 is,  

notwithstanding  anything  to  the  contrary  contained  in  

sub-section  1,  which  provide  for  a  total  50  per  cent  

reservation  for  the  categories  of  Scheduled  Castes,  

Scheduled  Tribes  and  Other  Backward  Classes,  i.e.,  

21 per cent, 2 per cent and 27 per cent respectively.  The  

terminology  of  the  aforesaid  section  is  clear  and  

unambiguous. Therefore, construed in its ordinary, literal  

sense, the sub section provides that the carried forward  

vacancies are not to be included in calculating the 50 per  

cent cap as contained in Proviso 2 to Section 3 (1).  The  

special recruitment may be held in that very year or in  

23

the succeeding year or years of recruitment as a separate  

class of vacancy. Sub-section 3 further provides that if  

vacancy/vacancies  reserved  for  Scheduled  Tribes  

remained  unfilled  even  after  three  special  recruitment  

made under sub-section 2, such vacancies are to be filled  

up  from  amongst  persons  belonging  to  the  Scheduled  

Castes.  In other words, unfilled vacancies falling to the  

share  of  Backward Classes  and Scheduled  Castes  and  

Scheduled Tribes, can be offered to the Scheduled Castes  

category.  These provisions clearly indicate that the posts  

which  are  meant  for  the  reserved  categories  would  be  

offered  only  to  the  reserved  categories  so  long  as  the  

reserved roster points are not occupied by the reserved  

categories.   

17. The aforesaid conclusion also flows naturally from  

sub-section  5  of  Section  3.   The  plain  language  of  

aforesaid  sub-section  clearly  shows  that  reservation  

under  sub-section 1 of  Section  3 shall  be  achieved by  

application of a roster indicating therein; the total cadre  

strength of the Public Service or Posts and the reserved  

24

points in the roster.  The roster so issued is required to  

be implemented in the form of a running account from  

year to year until the reservation for various categories of  

persons  mentioned  in  sub-section  1  is  achieved.   The  

vacancies arising thereafter in the Public Service or Posts  

to  be  filled  from  among  the  persons  belonging  to  the  

category to which the posts belong in the roster.  

18. Keeping  in  view  the  aforesaid  legal  position,  the  

issuance  of  the  letter  dated  4th July,  2006  would  be  

wholly  justified.   A  perusal  of  the  same  would  clearly  

demonstrate  the  anxiety  of  the  Government,  though  

belated, to ensure that the action is taken in accordance  

with the reservation policy and the roster which is to be  

maintained in terms of sub-section 5 of Section 3.  The  

aforesaid letter reads as follows:-

“No.G-223-E-2-Kal/Court Case

From:

Engineer-in-Chief, Establishment – 2 Ka- Section, Irrigation Department, U.P. Lucknow.

To:

25

Chief Standing Counsel, High Court, Allahabad.

Dated Lucknow : July 4, 2006.

Subject:  Regarding  Civil  Misc.  Writ  Petition  No.16005/2006  titled  Sangam  Nath  Pandey  and  others  vs.  State  of  Uttar  Pradesh and others.

Sir,

Kindly have a look into the letter No.Memo/P.S./2006  dated  3.7.2006,  vide  which  you  have  sought  information  regarding the status of the total cadre (group) of Civil Junior  Engineers  and  regarding  their  reservation  on  the  above  subject.  

2. On  this  subject,  I  have  to  say  that  in  the  Irrigation  Department there are total  4217 posts of  Junior Engineers  (Civil)  for  direct  recruitment  and  at  the  time  when  the  amendment was made to Adhiyachan of 887 posts, at that  time the position of  the quota of  reserved category was as  under:

Quota   Quota    Quota       Quota General      S.C.        S.T.         O.B.C.

Total sanctioned Posts  4218

Working after    2066   868 83 1116 Deduction of 2% From sanctioned Posts.

Working 2672     1808   200   1  663

Group-wise Shortage 1461      258   668         82  453

Posts to fall    2           2   --             --                 -- Vacant in year 2003-2004

26

Requisitions forwarded         1463       260      668           82              453

Thereafter,  for  completing  the  reserved  quota  of  the  reserved category the following requisitions have been sent.

Selection in dispute 887 Special Selection 352   SC/ST)

(292 SC + 60 ST) Special Selection 9 SC Special Selection 153 SC Special Selection 62 SC

---------------------- Total 1463

----------------------

It is clear from that the Department has  with  object  to  complete  quote  on  sanctioned  posts  has  forwarded  requisitions  as  above  and  has  requested  for  the  action  accordingly.

Yours faithfully,

Sd/-

(Gaya Prasad)      Senior Staff Officer (E-2Ka)

                For Engineer in Chief, Irrigation Department”

19. A  harmonious  construction  of  sections  2(d),  3(2)  

and 3(5) would lead to the conclusion, as stated by the  

Division  Bench,  that  only  those  vacancies  can  be  

declared backlog vacancies, within the reserved category,  

which were subject matter of advertisement but remained  

unfilled  because  of  non-availability  of  suitable  

27

candidates, within the reserved category, after selection.  

It is only in respect of such vacancy that the procedure  

qua  backlog  vacancy  can  be  adopted.   Any  vacancy,  

which has not been subjected to a complete process of  

selection,  even  though  vacant,  cannot  be  treated  as  a  

backlog vacancy.   

20. Section  2(d)  defines  a  period  of  12  months  

commencing  on  1st of  July  of  a  year  as  a  year  of  

recruitment for calculation of the number of vacancies.  

Section 3(1) gives the different percentages of vacancies,  

which are reserved for different categories of backward  

class candidates.  The percentage of vacancies reserved  

under Section 3(1) had to be filled according to the roster  

mechanism provided under sub-section 5 of  Section 3.  

Section 2(d)  would tend to indicate  that the State was  

required to determine the number of available vacancies  

in  every  year  of  recruitment.   Once  the  vacancies  are  

determined, necessary requisition would have to be sent  

to  the  Public  Service  Commission  for  initiating  the  

process  of  selection.   We  have  noticed  earlier  the  

28

correspondence  of  the  Government  with  the  Public  

Service Commission intimating the number of posts to be  

filled at various stages.  

21. In spite of the aforesaid requests, it appears that the  

posts  meant  for  the  reserved  categories  could  not  be  

filled.  The State Government had only partly performed  

its  duties by sending the necessary requisitions to the  

Public  Service  Commission  for  initiating  the  selection  

process.  Thereafter, the selection process ought to have  

been completed as provided under the Statutory Rules.  

It  appears that the selection process for the 367 posts  

was not completed.   Therefore,  the aforesaid vacancies  

could not be termed as unfilled vacancies belonging to  

the reserved categories.  But, at the same time, it also  

can  not  be  disputed  by  anybody  that  the  367  posts,  

which are sought to be filled by special recruitment are  

posts, which are meant for the reserved categories and  

have remained unfilled.  This is evident from the letter  

dated 25th October, 2005 pointing out that out of the 887  

posts mentioned in the letter dated 13th October, 2005,  

29

367 posts were infact reserved category posts, which had  

been lying vacant and had been wrongly included in the  

general  recruitment.   Hence,  a  request  was  made  to  

exclude  the  aforesaid  posts  from the  general  selection  

and  be  filled  by  holding  a  special  recruitment  for  the  

reserved category candidates.   

22. The exercise of identifying the year-wise and cadre-

wise  vacancies  ought  to  have  been  conducted  by  the  

State prior to the issuance of the advertisement as rightly  

noticed  by  the  learned  single  Judge.   The  purpose  of  

introducing  a  roster  system  was  to  ensure  that  the  

percentages of reservation provided for various categories  

of persons is effectively and speedily achieved. This can  

only be done if the department concerned identifies the  

year-wise vacancies in the cadre.  Once the vacancies are  

identified, it is enjoined upon the authorities to ensure  

that the selection procedure is completed speedily.  This  

is  necessary  to  avoid  uncertainty  to  all  categories  of  

candidates.   General category,  as well  as,  the reserved  

category candidates are likely to be adversely affected in  

30

case  the  vacancies  are  not  filled  within  a  reasonable  

period  of  time.   As  a  result  of  undue  delay,  certain  

candidates  will  always  be  in  the  danger  of  becoming  

overage  to  apply  for  some particular  posts  falling  in  a  

particular year of recruitment.  Unnecessary lethargy in  

filling up the posts would also lead to further uncertainty  

and  chaos  among  the  recruits  with  regard  to  their  

seniority, confirmation and promotions.  Such a situation  

only gives rise to unavoidable litigation, lasting for many  

long years.  This case epitomizes such malaise.   

23. In  our  opinion,  the  State  Government,  in  the  

present  case,  ought  to  have  initiated  the  necessary  

selection  procedure  upon  due  verification  of  the  posts  

available for the reserved categories.  It was not sufficient  

to  merely  send  the  requisition  to  the  Public  Service  

Commission.  It  was necessary for the State to pursue  

the  matter  with  the  Public  Service  Commission  for  

completion of the selection process.  Otherwise, the very  

purpose of introducing the roster system and a running  

account would be totally defeated.  We may reiterate here  31

the  observations  made  by  this  Court  in  the  case  

of R.K. Sabharwal (supra).  With regard to the operation  

of  the  roster  system,  in  the  aforesaid  case,  it  was  

observed as follows:-  

“5.  We  see  considerable  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 Castes and Backward  Classes. In a lot of 100 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 Castes. 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  up  to  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  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  

32

“running account” is to operate only till the quota  provided  under  the  impugned  instructions  is  reached and not thereafter.  Once the prescribed  percentage 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  population. The numerical quota of posts is not a  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  are  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  there shall neither be shortfall nor excess in the  percentage of reservation.

6.  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  

33

cadre-strength is always measured by the number  of  posts  comprising  the  cadre.  Right  to  be  considered 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.

7. When all the roster points in a cadre are filled  the required percentage of reservation is achieved.  Once the total cadre has full representation of the  Scheduled  Castes/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 v.  Union  of  India (1992 Supp  (3)  SCC  217) observed as under: (SCC p. 737, para 814)

“Take  a  unit/service/cadre  comprising  1000  posts.  The  reservation  in  favour  of  Scheduled  Tribes,  Scheduled  Castes  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 Classes, 150  by Scheduled Castes and 80 by Scheduled Tribes.  At a given point of time, let us say, the number of  members of OBCs in the unit/service/category is  only 50, a shortfall of 220. Similarly the number of  members  of  Scheduled  Castes  and  Scheduled  Tribes is only 20 and 5 respectively,  shortfall  of  130 and 75. If the entire service/cadre is taken as  a unit and the backlog is sought to be made up,  then  the  open  competition  channel  has  to  be  choked 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 years because the number of vacancies  arising each year are  not  many.  Meanwhile,  the  

34

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 strength of the cadre,  service or the unit as the case may be.”

The  facts  narrated  above  would  indicate  is  that  the  

situation in the present case is almost as it was depicted  

by this Court in the case of Indra Sawhney (supra).   

We,  therefore,  reiterate  that  it  is  necessary  for  the  

department to identify year-wise vacancies for the cadre.  

It is also necessary to fill up the posts speedily in order to  

avoid certain candidates being rendered ineligible as they  

may  have  become  overage.   It  is  for  this  reason  that  

Section  3  has  placed  importance  on  the  year  of  

recruitment as also on the process of selection.  In our  

opinion, the authorities have been rather casual in their  

approach in implementing the reservation policy, in letter  

and spirit.  We are, however, conscious of the fact that  35

the  367  posts  lying  vacant  for  a  number  of  years  are  

meant only for the reserved categories.  They have been  

calculated on the basis of the percentages reserved for  

various categories. In segregation of the aforesaid posts,  

none of the unreserved categories would be deprived of  

any posts which ought legitimately to have fallen to their  

share.   

24. Therefore, we are of the considered opinion that the  

interest  of  justice,  in  the  peculiar  facts  of  this  case,  

demands  that  the  course  adopted  by  the  State  

Government  in  segregating  367  posts  for  special  

recruitment ought not to be disturbed.  For the aforesaid  

reasons, we are unable to agree with the direction issued  

by the Division Bench in the impugned Judgment.           

25. Before we part, we may also notice that all the writ  

petitioners have participated in the selection process and  

remained  unsuccessful.   Therefore,  none  of  their  legal  

rights has been infringed.   

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26. In view of  the  above,  the  appeal  is  allowed.   The  

Judgment of the Division Bench is set aside.  

Civil Appeal No. 4381 of 2010

In view of the judgment passed in Civil Appeal No.  

4360  of  2010,  this  appeal  is  also  allowed  and  the  

Judgment of the Division Bench is set aside.     

……………………………..J. [B.Sudershan Reddy]

……………………………..J. [Surinder  Singh  Nijjar]

New Delhi; 37

December 15, 2010.

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