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PETITIONER: THE SCHEDULED CASTES AND SCHEDULEDTRIBES OFFICERS WELFARE CO

       Vs.

RESPONDENT: STATE OF UTTAR PRADESH & ANR.

DATE OF JUDGMENT:       19/09/1996

BENCH: K. RAMASWAMY, FAIZAN UDDIN, G.B. PATTANAIK

ACT:

HEADNOTE:

JUDGMENT:                          O R D E R      This writ  petition under  Article 32 was referred to a Bench of  three Judges  to decide  an important  question of constitutional dimension raised in this case.      Admittedly, in  the Health  Department of Government of U.P. called  Provincial Medical  Health Service  (for short, the ‘Services’)  recruitment to  the posts  of  Doctors  and promotion up  to the  post of  Director  were  regulated  by executive instructions  of the  Government and from the year 1973 Government  had appointed  the doctors  to the service. Until the  U.P. Regulation  of Ad  hoc Appointment (on posts within the  purview of the Public Service Commission) Rules, 1979 were  made by  the Governor, in exercise of power under proviso  to   Article  309  of  the  Constitution,  all  the appointments and  also promotions  came to be made on ad hoc basis. The  petitioner-Association is  seeking for a writ to quash the  memo dated July 28, 1986 and for declaration that promotions made  within the  cadre shall  be on the basis of seniority subject to rejection on ground of unfitness and to regularise the  services of all the officers in the cadre as per instructions  as were in vogue prior to the date of that memo and other reliefs.      The admitted  position from  the record,  is  that  the Personnel Department  of the  Government  has  issued  model rules to all the departments to exercise the power under the proviso to  Article 309 of the Constitution and to frame the statutory rules  for appointment made in accordance with the rules. Pending  making of  the rules,  ad  hoc  appointments could be  made but  it would  be for one year and as soon as regular appointments were made, the ad hoc appointments were to be  regularised in  accordance with  the rules.  In  this case, admittedly,  no statutory  rules  were  made  nor  the procedure even  as per  instructions in force, was followed. Adhocism was  the rule  at the  whim of  the  Department  of Medical Health.  In the  services, as  per  instructions  in vague, appointment  to the post of Doctor could be made from amongst qualified doctors and diploma-holders. For promotion from the  post of  Medical Officer  to the  post  of  Deputy Medical Officer  etc., qualifications  and  experience  have been prescribed.  Prior to  July 28,  1986, for promotion to

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the post of Deputy Chief Medical Officer experience of eight years of  service was  prescribed and  for promotion  to the post of  Chief Medical  Officer, two  years’  experience  as Deputy Chief  Medical Officer was prescribed. Similarly, for promotion  to   the  post  of  Joint  Director,  two  years’ experience as  Chief Medical  Officer  was  prescribed;  for promotion to  the post  of Additional  Director, two  years’ experience  as   Joint  Director  was  prescribed;  and  for promotion to  the post of Director, one year’s experience as Additional Director  but on  the basis of merit and ability, was   prescribed. For all other posts, seniority, subject to rejection on  the ground  of unfitness,  was  the  rule.  No minimum length of service was prescribed.      In the  offending Memo  dated July  28, 1986, they have increased the  minimum length  of service from 8 years to 12 years for  promotion from the post of Medical Officer to the post of  Deputy Chief  Medical Officer   and to 15 years for promotion from  Deputy Chief  Medical Officer to the post of Chief Medical Officer with a minimum experience of two years and  selection  would  be  subject  to  merit  and  ability. Similarly, for  promotion from  the post  of  Chief  Medical Officer to  the  Post of Joint Director, total service of 15 years and  minimum experience  of one  Year was  prescribed. Merit and ability was prescribed for promotion from the post of Joint  Director to the Post of Additional Director; total length of  service prescribed was 25 years with a minimum of four years’  service as  Joint Director subject to merit and ability. For  promotion from the Post of Additional Director to the  Post of  Director, total  service of  28 years  with minimum qualifying  service of one year subject to merit and ability, was  the criteria.  In normal  circumstances,  such prescription laying  down minimum  service as  qualification would be  unexceptionable to  augment the  efficiency in the Services and  would evoke  no ire.  But whether  it was laid only as  pretext and  subterfuge to  deny the constitutional right and  to frustrate  the constitutional objective is the question. In  the first  instance, we  reacted  against  the contentions  of  Sri  Goburdhan,  learned  counsel  for  the petitioner. But  when he ripped apart the veil and succeeded in connecting  the links as camouflage, the game plan became transperently visible  and naked to indicate that colourable exercise  of  power  was  used  and  abused  to  denude  the legitimate rights  of the  officers  belonging  to  reserved categories and to deny them of their rights. Sri Verma, Very fairly, was unable to support the actions of the Department.      Sri Goburdhan  contend that  this procedure was devised only to avoid promotion to three eligible officers belonging to the  Scheduled  Castes  and  Scheduled  Tribes  as  Joint Directors etc,  and this  was demonstrated with reference to the instructions  issued by the Personnel Department and the successive orders  issued by  the respondents.  It is not in dispute   that   the   Personnel   Department   had   issued instructions on  December 27,  1956 that  the  principle  of seniority-cum-rejection on  the ground  of being  unfit  for selection  as   eligibility  criteria   should  strictly  be observed. Where  eligible and  able persons are available in Government service,  opportunity should  be given to all. If no suitable and experienced officer is available, there is a possibility of  worsenining in  future of the persons facing the seniority criteria. The Government, therefore,  directed that seniority-cum-rejection on the ground of being unfit be followed  in  promotion.  The  eligible  persons  should  be offered  opportunity.  This  principle  eversince  is  being followed uniformly  in all  the Departments.  In Memo No. E- 210/80-SR-25-77  Personnel   1  dated  April  9,  1980,  the

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Government had  issued instruction  to frame  the  statutory rules and  the manner  and procedure to select the personnel was indicated  and deviation  as laid  in Para  5, which  is relevant, reads as under:      "5 This  has also  been decided  by      the State  Government  that  if  in      adopting the Provision as laid down      in the  enclosed model  draft there      comes any  difficulty then  instead      thereof, as  an  exception  and  in      special circumstances,  if there is      necessary   to   make   any   other      arrangement in Public interest then      it  may  be  done  only  after  the      consultation   with    the   Karmik      (personnel) and Judicial department      with the  higher orders (Council of      Ministers or  equivalent) or it can      be continued."      The Personnel  Department further  issued directions on December 31, 1973 that there was a provision for reservation as per  the orders of the Government dated March 8, 1973 for the  Scheduled   Caste  and   Scheduled  Tribe   Persons  in Promotions. It read as under:      "The Government  has taken decision      that  the   SC/ST  will  avail  the      benefits of  reservation in service      and posts on which the promotion is      made on  seniority  basis  and  the      promotions   is    done   in    the      prescribed manner."      The Government have, therefore, reiterated the decision that  SC/STs   officers  will   avail  of   the  benefit  of reservation in  services and   posts  and also in promotion. The principle  of  promotion  is  made  on  seniority  basis subject to  rejection on  the gound  of  unfitness  and  the promotion is done in the prescribed manner.      But,  in   this  case,   instead  of  implementing  the Government directions  in promoting  those three officers as per earlier rules, the offending criteria was introduced. It is not  in dispute  that the  Government have issued that in case any special circumstances are made out in derogation to the  general  principles,  the  approval  of  the  Personnel Department, Law Department and the Cabinet Sub-Committee was required to  be obtained  before issuing  the special  rules governing the  Services. But,  in this case, admittedly, the Medical  Health  Department  in  deviation  of  the  general principle of  seniority, subject  to rejection on the ground of unfitness,  introduced merit  and ability  to fill up the post of Chief Medical officer and upwards, without obtaining prior approval of those three functionaries. The counsel for the  petitioner   contends   members   of   the   petitioner association also  do not  feel shy  to compete  on merit and ability  provided  their  cases  were  considered  honestly, sincerely and objectively without pre-disposed prejudice.      In the  counter-affidavit, it  has not been stated that the  Department   had  obtained   approval  of   the   three authorities.  Therefore,   the  offending   resolution   was obviously contrary  to the  general principles  laid down by the Government.  It is  also brought  out  from  the  orders passed by  the Department itself that from 1973 till January 12, 1986  the rule  of seniority-cum-rejection on the ground of unfitness  was in  vague and  they did  not insist upon a minimum qualifying  service in each of the promotional posts except the  minimum experience  in the particular post which

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was prescribed  for promotion.  It is  also to be noted that the Department  had relaxed  the above prescribed qualifying and minimum  length of  service immediately after six months when  claim   of  general   candidates  had   come  up   for consideration and  after the  promotion  was  given  to  the general candidates  the rule  was restored.  The  petitioner have  specifically   pleaded  that   the  rule   of  minimum qualifying service was prescribed only to deny the promotion to three eligible officers belonging to SCs/STs because they did  not   have,  while   the  general  candidates  had  the prescribed total length of service In paragraphs 9 and 10 or the writ petition they have specifically averred and in para 25  of   additional  affidavit   it  is   reiterated  giving insistence in  that behalf.  In paragraph 25 of the counter- affidavit filed  by the respondents they have vaguely denied that relaxation  to general  candidates in  the interest  of administration was  given. When  the petitioners pointed out that  other   Departments  were   not  insisting   upon  the administrative experience  merit and  ability and  upon  the minimum  qualifying  service  it  has  been  stated  in  the counter-affidavit that since the promotee officers up to the level of  Chief Medical  Officer, Joint Directors Additional Director are  required  to  have  administrative  experience minimum qualifying service etc. were insisted upon. But when it was  pointed out that in other Departments administrative officers were  not required  to put  up  minimum  qualifying service they  have stated  in the  counter-affidavit that in other Departments,  it was not insisted upon since the posts are administrative  posts. The  stand taken  in the counter- affidavit is mutually inconsistent and blows hot and cold at the same  time. It  is a  volte face justification given, by the Department only to justify their arbitrary and mala fide action. As  soon as  the Scheduled  Caste and  the Scheduled Tribe  officers   were  eliminated  from  consideration  and general candidates  were promoted  they  looked  around  and found it  safe to retrace their steps and to fall in general line by  restoring the  rule of  minimum length  of  service merit  and   ability  and   qualifying  service.  This  gets demonstrated by the above undisputed facts.      It is  also seen  that  when  the  post  of  Additional Director became  vacant for general candidates only and when they were  not available  for promotion  since they  did not have required  length of  minimum  qualifying  services  the Department relaxed  the requirement  of  minimum  qualifying service on  the specious  plea that services of the officers were required. They have stated that they were the only special circumstances  for the  officers  concerned.  Again, after the  officer from  general category  were promoted the general prescription  of  qualifying  service  was  insisted upon. These  circumstances clearly  would indicate  that the persons manning  the Department  are using  a policy of pick and choose  to Suit their convenience in abuse of colourable exercise  of   power  creating   disharmony  in  policy  and resorting to  victimisation of  the eligible  officers since they belong  to reserved category. These circumstances would clearly and  in  unmistakable  terms  demonstrate  that  the aforesaid instructions  came  to  be  issued  by  mala  fide exercise of  the power by the concerned officers with a view to deprive  the eligible SC/ST officers for promotion to the posts to  which they  are entitled as Chief Medical Officers and Joint Directors.      Under the  scheme of  the  Constitution  the  political executive headed by the Governor of the State is assisted by the Chief Minister appointed by the Governor and the Council of the  Ministers appointed  on  the  advice  of  the  Chief

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Minister who  would  be  collectively  responsible  for  the administration of  the State.  The administration is carried on by  and in  the  name  of  the  Governor  put  the  Chief Minister, Council  of Ministers and the individual Ministers in  charge   of  the   assigned  subjects  individually  and collectively are  responsible for  the  functioning  of  the concerned  Ministry.   The  Constitution  further  envisages permanent bureaucracy  with all  India  services  and  State services  envisaged  in  Part  XIV;  their  recruitment  and conditions  of  service  are  regulated  by  the  provisions contained Chapter  XIV or  any Acts  of legislature  or  the rules made  under proviso to Article 309 of the Constitution or  even   executive  instructions   co-extensive  with  the legislative power  of the  State Legislature.  The political executive  lays   broadly  the   policies   and   programmes consistent with  their political  manifesto but should be in conformity with the Directive Principles of the State Policy which binds the Government in power and also the Fundamental Rights. The  bureaucracy works out the details of the policy and applies  the law to the given circumstances in assisting the political executive. The preamble, the fundamental right and the  directive principles  envisage establishment  of an egalitarian social  order to  accord socio-economic justice, liberty, equality  of status  and of opportunity, dignity of person and  fraternity in  an integrated  Bharat. The Indian social order is based on hierachical social structure. since the Scheduled Tribes habitate in reserved forests and forest areas, the founding fathers of the Constitution recognised and protected  their special interests in Scheduled V and VI to  the   Constitution  so  as  to  integrate  them  in  the mainstream of  the national  life.  Equally,  the  Scheduled Castes who were denied social integration and kept away from the mainstream  of the  national life  due  to  practice  of untouchability abolished  by Article  17 are  protected from discrimination.  In   Part  III   of  the  Constitution,  in particular Articles 17 and 15 [2] enable them to have access to  public   places  and   denial   of   equality   due   to untouchability was  declared to  be  constitutional  offence punishable under Civil Rights Protection Act; Articles 14 16 and  15  grant  equality.  Article  46  protects  them  from exploitation and  directs the State to accord socio-economic justice, facilities  and opportunities to have opportunities for appointment  to an  office/service/post so  as to accord soio-economic  justice   for  their   integration   in   the Mainstream of national life. The social imbalances should be removed only  through rule  of law. Law is a social engineer The social  justice was  held to be a fundamental right by a Bench of  the Judges in Consumer Education & Research Centre & Ors. Vs. Union of India & Ors.[(1995) 3 SCC 432 and Dalmia Cement (Bharat)  Ltd. &  Anr. vs. Union of India s Ors. etc. [JT 1996  (4) SC 555]. Economic empowerment was also held by a Bench  of three  Judges in  Murlidhar Dayandeo Kesekar vs. Vishwanath Pandu  Barde &  Anr.[1995 Supp.(2)  SCC 549]  and Bihar State  Electricity board  & Ors.  vs. Parmeshwar kumar Agarwal etc.  etc. [JT  1996 (5)  SC 555] to be  fundamental right available to them. By operation of Articles 38 and 46, in particular,  facilities and opportunities are required to be provided  to them  to improve  their  excellence  in  all spheres of  life. The  State, therefore has evolved, as held by this  Court in  Indra Sawhney  VS. Union of India [(1993) Supp. 3  SCC 217]  appointment or  employment to  an  office particulary in  the services  under the  State as  means  to provide facilities  and opportunities  for  employment.  The opportunity for  education given  under  Article  15(4)  and employment accord  to them  right to equality of opportunity

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and  of   status  and   the  dignity   of  person,  economic empowerment  and  opportunity  to  improve  excellence.  The Constitution [77th  Amendment] Act,  1995 introducing clause [4A] of Article 16 made provision  reservation in matters of promotion of  any class or classes of posts in service under the State  in favour  of the  Scheduled Castes and Scheduled Tribes which  in the opinion of the State are not adequately represented in  the services under the State. Article 335 of the  Constitution  enjoins  upon  the  State  to  take  into consideration the  claims of  the Scheduled  Castes and  the Scheduled Tribes  in making  appointments  to  services  and posts in  connection with  the affairs  of the Union or of a State, consistently  with the  maintenance of  efficiency of administration.  It   is  settled  law  that  conditions  of services include  everything from  cradle  to  grave.  viz., recruitment to services or posts under the State, promotion, salary pension etc. The conditions of services are regulated either by  statutory rules  or in  their  absence  executive instructions. There  is no  need for  preexisting  statutory rules to  regulate the  conditions of  services  Proviso  to Article 309 of the Constitution gives power to the President or the  Governor, as the case may be, subject to law made by the Parliament/the  State Legislature to constitute services and to  regulate the  service conditions by making statutory rules governing  the conditions  of service.  Under  Article 162,  the   executive  has  the  power  to  issue  executive instructions  consistent  with  the  fundamental  rights  in Chapter III  to regulate  conditions of service but they are subject to  the law  made by  the State  Legislature or  the Rules made  by the  Governor under proviso to Article 309 of the Constitution. Executive instructions can also be made to supplement  the  law  to  fill  in  the  yawning  gaps.  The permanent bureaucracy, therefore, in evolving the principles or giving  shape to the policy or the political executive on in applying  the law,  rules or  instructions is  guided  by constitutional philosophy  and policy  envisaged thereunder. Article 261  of the  Constitution, therefore,  accords  full faith and  credit to  the executive  acts and records of the Union and  the States, the law made by the Parliament or the Legislature or such of the rules or regulations etc. made in furtherance thereof  as well  as judicial proceedings of the Union and of every State.      In the  "Constitutional law  of  India"  edited  by  M. Hidaytullah, former  Chief Justice [Vol.II] at pages 294, on the doctrine  of "full  faith and  credit" it is stated that relationship between the Union and the States leaves Article 261 to  play greater  role than its counter-part does in the U.S. Constitution. Our experience since the formation of the Constitution fully  Supports  this  conclusion.  The  public acts, records  and judicial  proceedings, in  recognition of laws, accorded by Article 261 are in accord with Entry 12 of the  Concurrent   List  subject  to  the  law  made  by  the Parliament in  clause [2]  of  Article  261".  The  founding fathers of  the Constitution  posed full  faith  and  credit under Article  261 to  all the  enumerated acts, proceedings etc. with  absolute faith  that they are done to further the goals set  down in  the Preamble  the basic structure of the Constitution. But  the crux of the matter is not the grammer of the  language but  the spirit behind the doctrine of full faith and credit. The reason is that the political executive assisted by  the permanent bureaucracy faithfully implements the constitutional philosophy and applies the law to further the goals  set down  in the  Constitution to  establish  the egalitarian social  order under  the rule of law and applies the law  objectives of  the law  made thereunder.  Therefore

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full faith  and credit  is accorded  to the  public acts and records. That  apart the  same may  be relied  on  by  other States.      Swami Vivekanand  in his  lecture  entitled  "The  Work Before Us  [1897] published  in "The Complete Works of Swami Vivekananda" [Vol.3,  p. 269  (1973 edn.)]  has  Stated  the scope of enlightened citizenship thus:      The problem  of  life  is  becoming      deeper and broader every day as the      world moves  on. The  watchword and      the essence have    been   preached      in  the   days  of  yore  when  the      Vedantic    truth     was     first      discovered, the  solidarity of  all      life.  One  atom  in  the  universe      cannot move  without  dragging  the      whole world  along with  it.  There      cannot be any progress with the      whole world  following in the wake,      and  it   is  becoming   every  day      clearer that  the solution  of  any      problem can  never be  attained  on      racial,  or   national,  or  narrow      grounds. Every  idea has  to become      broad till it covers the whole of      this world every aspiration must go      on increasing  till it has engulfed      the  whole  of  humanity,  nay  the      whole of  life  within  its  scope.      This will  explain why  our country      for the  last two centuries has not      been what  she was in  The past. We      find that  one of  the causes which      led to  this degeneration  was  the      narrowing of  our  view,  narrowing      the scope of our actions".      Swami Ranganathananda in his Inaugural Address at Swami Vevekananda  Auditorium   speaking   on   the   concept   of enlightened  citizenship   as  envisaged  in  Gita  and  its relevance in a democracy has stated in "Enlightened Speeches [First Edition]  1985] a publication of Ramakrishna Mission, New Delhi, thus:           "That is the primary status of      man in India since 1950 - sovereign      and free  citizens in  a  seoverign      democratic republic. Since then, we      have been  reliving  in  India  the      ancient    and    modern    Western      political experience,  in a big way      and learning  our lessens  in  this      new experience  of, and adpating it      into,   a   nation-wide   political      democracy in the context of immense      human   diversities   and   complex      social structures, of a continental      size  and   millennia-old  cultural      traditions,   which    would   have      staggered the leaders of the simple      Greek  city   states.  The  several      national and  state elections since      independence    have     given    a      democratic political  education  to      our people,  which we  never had in      our  millennia-old   history.   The      Constitution  treats   the   entire

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    people of  India as  sovereign  and      free, none  treated as slaves or as      outside that  citizenship  all  the      people  of  India  are  transformed      into citizens  of a free democratic      state. What a beautiful concept and      experience.           It  is   a  big   change  from      subjection to  freedom, from  being      praja or  subject  to  citizenship.      But it  is unfortunate  that we did      not understand  its implications or      appreciate its significance; and we      failed to  take sustained energetic      steps to  assimilate the beauty and      strength   of    this   citizenship      concept    and     value.     After      experiencing  the   ectasy  of   it      during  the   first  flag  hoisting      ceremony on  the 26th January 1950,      we did  not give  serous thought to      the question,  what does it mean to      be citizens  of a  free  democracy?      What changes  should  this  statuts      produce in  myself, in  my attitude      and in  my behavious, to be able to      deserve   this    status   and   to      strengthen my new democratic state?      After a  little effervescence  of a      day or two, that  ectasy of freedom      slowly evaported away.      The consciousness  of  being  afree      citizen and what it involved during      the modern  period of  our history,      had dawned  only in a few pwople of      our  country.  That  has  Been  our      nation’s  misfortune.   If   during      these     thirty     years,     our      intelligentsia, constituted  of our      school-and-college         educated      section,    had     realized    and      assimilated    tho    meaning    of      citizenship  what   political   and      economic   strength,   what   human      energy  resources   what  all-round      national progress  we would  d have      achieved  by  now.  In  our  Indian      context at least therefore, we have      to introduce this new term, namely,      enlightned  citizenship,  making  a      distinction between  mere political      adult citizenship  and  enlightened      citizenship, It is like the milk in      our Indian  market where we have to      ask for  pure milk,  unlike in  the      West where  our peoples  where they      go there  find  such  an  adjective      sounds puzzling  and absured to the      people there,  sinc all  milk there      is pure".      At page  259, under  the heading  "Citizenship  on  the Focus of  Human Equality", he has stated elaborately that we are   primarily citizens of India and secondarily only these and other  similar functionaries.  All these  are  only  the functions that  we severally  perform  as  citizens  of  the

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country. He emphasised the unity of awareness of citizenship to elongate  wider spectrum of funtional affinity by getting rid of all forms of mental aberations from the humble to the high and the mighty and to widen broad mental horizens. He quoted from Bhartrhari in his Niti-sataka [verse 64] the four qualities of man thus:      "There is one type of people called      the sat-purusas,  good  people  who      sacrifice their  own  self-interest      and work  for the  welare of  other      people the  next group  consists of      the samanyas,  the   generality, or      the majority, who also work for the      welfare  of   other   people,   but      without sacrificing  their own self      interest, there are other the third      group   are   the   manava-raksasas      demons among men, who destroy other      people’s welare  in order  to  gain      their own  selfish  interests;  but      they  the  fourth    group  on  the      contrary - alas, I do not know what      to call them-destroy other people’s      welare,   even    without   gaining      anything for themselves"                X    X    X    X    X           "The   second    group    will      constitute  the   majority  of  the      population in  every  society.  And      enlightened citizenship  belongs to      that category.  The  philosophy  by      which  they   live  can   also   be      described in  the language  of  the      nineteenth-century          British      political      philosophy,       as      enlightened self interest. They are      frankly  not  ascetics;  they  have      their  own   personal  and   family      interest  to   achieve,  but   they      include the  in a wider concern for      society  as   a  whole   and   that      constitutes the  vital  element  of      enlightenment  attached   to  their      self interest.  But there  is  need      for  this   group  to   be   alert;      otherwise, there is every chance of      this enlightenment  getting  eroded      and self-interest  ruling  supreme.      And once  this erosion takes place,      they slide slowly down and join the      third group,  among whom  are found      all those  who indulge in all sorts      of   social    malpractices,   like      bribery  corruption,   tax-evasions      smuggling     food     and     drug      adulteration.  Out  or  these  some      fall further  down into  the fourth      category and  become sheer vandals.      The only  remedy against the second      type sliding  into  the  third  and      fourth categories is alertness, and      constant looking  up to  the people      of the  first category  - the sat -      purusas  and   drawing  inspiration      from that small minority of men and

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    women who  are in  the language  of      Jesus in New Testament, the salt of      the earth’."                X    X    X    X    X           "Human   equality    at    the      spiritual level  has been  preached      and practised  in our country since      ages. This  is the  meaning of, and      is  derived   from   the   Vedantic      teaching of  the same  divine Atman      in   all    beings   -    integral,      inalienable,  and   full,  and  the      samatvam  and  the  sama-darsitvam,      equality and  sameness of  vision,’      flowing from  it. A few sanints and      devotees had  realized  this  truth      and lived  by it.  Bhakter jat nai,      ’There  is   no  caste   and  Class      distinction among  devotees of  God      (as He dwells in all)’, is a famous      saving  of  Sri  Ramakrishna.  This      great   truth    had   never   been      translated into the wide social and      economic fields or transformed into      a social  fact of  human  awareness      affecting   millions.    But   that      opportunity has  come to  us in the      modern age  through the  message of      modern   democracy   -   political,      economic, and  social.  That  sama-      darsityam at  the spiritual   level      becomes   today,   buttressed   and      strengthened by a sama-darsitvam at      the political  and social  leve, by      the modern  concept and practice of      citizenship of  a democratic state.      Democratic citizenship  is a  focus      of  not   only  human  freedom  and      dignity but also of human equality.      Swami  Vivekananda  considered  the      significance of the emerging modern      period of  our history  to  consist      essentially   in   this   practical      implementation  of   the   Vedantic      vision of human freedom dignity and      equality.   In   our   new   India,      therefore  political   efforts  and      spiritual  efforts  coalesce    and      reinforce   each   other   in   the      struggle to  evolve an  egalitarian      society;   the   spiritual   effort      stresses human  unity  in  the  one      Atman in  all, and political effort      stresses human  unity in  the unity      of citizenship in our democracy.      On  Law  justice  and  the  Philosophy  of  Man"  Swami Ranganathananda has stated thus:      "Our country is now discussing, and      tardily going about affording legal      aid to the poor; it is good that we      are    slowly     realizing    that      administering  and  dispensing  law      may  not  always  be  the  same  as      dispensing justice,  and  that  our      democracy    cannot     be     well

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    established  without  bringing  law      closest to  justice. Theoritically,      our law  is equal  to all,  and all      are equal  before our,  law. But in      actual operation  it  benefits  the      rich and  the strong,  not the poor      and the  weak.  The  Sanskrit  word      dharma stands  for the  integrating      principle in  human society and can      be translated roughly as justice or      righteousness  or   ethical  sense.      Next to  the truth of the Atman, it      is   the   most   significant   and      pervasive truth and value in Indian      culture. Dharma  is that very truth      of  the   Atman  reflected  in  the      social     context     of     human      interactions.   The   Brhadaranyaka      Upanishad   gives   the   following      exposition     of     dharma     as      righteousness  as   the   soul   of      justice:           Yet He (the Cosmic Person) did      not flourish (even after projecting      all  power   into  the  universe  -      intellectuals    politico-military,      commercial    and    labour).    He      specially projected  that excellent      forms dharma or righteousness. This      dharma is  the  controller  of  the      Ksatriya the  holder of  power  and      authority)   Therefore   there   is      nothing higher  than  that  even  a      weak  man   hopes  (to   defeat)  a      stronger man through dharma as tone      contending)  with  the  king.  That      dharma is verily truth.           Until law  becomes not only in      formulation but  also in operation,      law has no meaning."      In "The  Responsible Society - The Ethos of which India Lacks  Today".   a  commemorative  volume  to  Justice  V.S. Deshpande former  Chief justice  of Delhi  High Court in his article "Social  Responsibilities of  Public Administrators" Swami Ranganathananda has stated at page 1 thus:           "I consider  the  administator      primarily as a citizen of India and      want him  to always  remember  this      truth. It  will do him good to know      what that  means. Nobody is born an      administrator, and nobody is always      an administrator.  We are  all born      citizens  of   a  free   India  and      acquire   the    status   of   full      citizenship at  the age of maturity      as    laid     down    under    the      Constitution. Some  of those mature      citizens  choose   to  be  and  are      called   upon    to   become    our      administraors  for  some  years  of      Their life.  This means  that their      primary  individuality  is  not  as      administrators, but as citizens. We      are  all  essentially  citizens  of      free India  called upon  to perform

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    particular functions in the service      of our  nation so  that citizenship      constiutes our  primary being,  and      what we  do as administrators or as      members of  some  other  profession      becomes  merely   the  function  we      discharge deriving inspiration from      that being"      On "The  Problem of  Motivation", he  has  stated  that bureaucracy is  necessary for  every State  which is part of the whole  process of Government. But a functionary need not be a  bureaucrat static  and wooden  though functioning as a bureaucrat. On  "Bureaucracy: Static versus Dynamic" at page 4, he has stated thus:      "A static bureaucracy and a dynamic      bureaucracy are both bureaucracies;      the   difference   lies   only   in      attitudes; the  first represents  a      low  notion   of  man   as  a  mere      functionary,   man    as   a   mere      bureaucrat. That  is  a  very  poor      state of  man, in  which he  or she      draws from  his or  her function to      enrich his or her inner being which      is otherwise empty; and this is the      state or  mind that is prone to and      often succumbs  to  corruption. The      second represents  man as  inwardly      rich in  his being, in the strength      of   citizenship    awarness    and      patriotic impulse,  and pouring out      the  richness   into  his   or  her      function. And this attitude fosters      a spirit  of service   and  contain      much innave  strength to resist and      overcome corrupting  influences. In      these  context,  attitude  plays  a      great part.  A change  of  attitude      can produce termendous results. And      attitude is  something that one can      control  that  one  can  manipulate      that one  can make  to  grow.  This      attitude   control is  an  integral      part of  a philosophy of man, which      can enrich  one’s being  as well as      function.      In his  article "Role of the People and Institutions in a Responsible Society published in "The Responsible Society" [ibid],   Justice H.R. Khanna former Judge of this Court has expressed his  views at  page 55 about the role of the civil servants and has stated that "Apart from ensuring that there is no  trespass by  one wing of the State upon the domain of the other wings we have also to ensure that within each wing proper  norms  which  have  been  evolved  for  the  healthy functioning of  democracy are  adhered to and complied with. It is  in this  context that  one  maw  first  turn  to  the executive. This  is the  strongest wing  of  the  State  and consists of  two parts- the minister and the civil servants. So far as the minister are concerned it is they who normally take the  policy decisions  and lay down the general pattern of administration.  The execution of those decisions and the application  of  policy  matters  to  individual  cases  is, however to be left to the civil servants. The civil servants therefore of  necessity have  to act  in fulfilment  of  the promises in  the policy and the Constitution. It is the duty

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of the  civil servants  to carry  out the policies to fulfil the constitutional  objectives and the responsibility of the Government".      In "Eternal  Values for  a Changing  Society" by  Swami Ranganathananda [1971 - 3rd Edn.] at page 693, the pragmatic philosopher had  in his  speech  advised  the  young  Indian Administrative  Officers   stating  under  the  heading  The Administrator in  a  Welare  State"  that  the  State  in  a democratic society deives its strength from the co-ordinated wills of  all its free and equal citizens. In the absence of this strength,  the  State  becomes  an  imposition  on  the people. States  have always  been  looked  upon  as  irksome burdens by the people at large in our country, who have tolerated their  existence for  the little benefits of order and secuirty  derived from  them. Quoting Bertrand Russel in his ’Impact  of Science  on Society",  Swami Ranganathananda has stated  "Unless men  increase in  wisdom as  much as  in knowledge,  increase   of  knowledge  will  be  increase  of sorrow’. Buddhi  connotes this  ripening of  knowledge  into wisdom. Intelligence  at the  buddhi level creates a pattern of what Sorokin calls altruism in human character. It cannot function  except   in  a   creative  and  constructive  way. Detachment and  stability, resourcefulness and sympathy, are the hallmarks  of such  a character,  at once  efficient and human. He  has stated that the Indian Administrative Service Training School  has kept  this two-fold  efficiency as  its objective, and  has  adopted  for  its  motto  the  pregnant message of  Sri Krisna  in the  second chapter  of the Gita, verse 50:  Yogah karmasu  kausalam Yogi  is  efficiency  for action. A  world of  ethical and  spiritual thought has been compressed in  that brief message. Therefore he has exhorted the IAS Officers thus: "Our politics and administration will have to breathe the spirit of this yoga if we are to realize the objectives  of a  welare State  if we are to establish a polity based  on social  justice and  social peace, a polity free from all forms of exploitation, not merely economic but also political  and mental.  This yoga  however,  is  not  a teaching to  compose the  distractions of  a mere nation and people but is universal in its scope".      S.A. de  Smith in  his article  "The abusd of statutory powers" published  in Public  law Series 1956 [page 233] has stated at  page 237  under the  heading "Misuse of Powers in Bad Faith  and in  Good Faith’ that a discretionry power may be exercised invalidly if its repository exercises it for an improper   purpose   or   on   the   basis   of   irrelevant considerations or in disregard of relevant considerations or with gross  unreasonableness ....  The concept  of bad faith eludes   precise definition  but in relation to the exercise of statutory  powers it  may be  said to comprise dishonesty and  malice.   A  power  is  exercised  dishonestly  if  its repository intends  to achieve an object other than that for which he  believes the  power to  have been  conferred.  His intention may  be to  promote another public interest or his own private  interests. A  power is exercised maliciously if its repository  is motivated  by personal  animosity towards those who are directly affected by its exercise.      On the  "Ultra vires breach of statutory duty" by Peter Cane, Fellow  of Corpus Christi College Oxford, published in public law series, 1981 at page 11, the author has stated at page 13  on the  "The Content  and scope  of the  duty" that duties are  not always  couched in  terms  of  such  crystal clarity that  they are practically self-applying. One of the importan differences  between a duty and a power is that the holder of  a power  has a  greater or  less freedom  to give concrete content  to the  power in particular circumstances,

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whereas the bearer of a duty has no control over the content of the  legal consequences of the use of the word ’duty’ are varied and complex and depend to a large extent on how open- textured is the language in which the content if the duty is cast as  well as on the political sensitivity of the area in which the  duty operates. Secondly, by developing the notion of ultra  vires, breach  of  duty,  the  courts  have  given themselves  a   degree  of  flexibility  and  power  in  the enforcement [or  non enforcement  ] of  the duties of public authorities which  has hitherto  existed only  n relation to the control of powers and discretions.      In "public  Administration" by  pfiffner-presthus  [4th Edn.] at page 550 it is stated that public administration is responsible to  the rule  of law  dcotrine  which  proves  a fairly  effective   standard  for   judging   administrative decisions. Political  responsibility is  similarly  involved with idea  of  government’s  control  by    public  opinion, political parties,  used to  denote  the  obligation  of  an individual to  behave   according to  certain  standards  of conduct. In  public administration, responsibility often has a negative  connotation; we  are usually  satisifed  if  the official is  kept from  wring doing. On "Responsibility. and Accountability ",  he states  that accountability  refers to the   formal    or   legal    locus    of    responsibility. Responsibility, on  the other  hand, has  a highly personal, moral quality  and is  not  necessarily  related  to  formal status or  power, although  it is  probably true that grater power brings  grater responsibility.  Thus a department head is accountable  for the  actions of  all  his  subordinates, although in  actual fact  he is  not "responsible" for their use of the power which he must of necessity delegate to them . Similarly,   in  exercising  discretion  the  official  is morally responsible  for his  decisions although he is often not legally accountable. In practice, responsibility must be shared;  it percolates down the stream throughout the entire administrative branch.  On the  other hand,  accountability, which   concerns    the   formal    relationships    between administration and  the legislative  and judicial  branches, can never be shared. In general, the bureaucracy is regarded as accountable  to elected representatives and to the courts who give  meaning to  the rule  of law  doctrine, within the Executive  branch,   accountability  is   sought  through  a hierarchy of  offices and  duties and makes possible a "line of command"  from top  to bottom.  The chiefs of the various departments must  answer to  the President  as repository of power.  Each   section  and   division  heads   are  legally accountable  in   turn  to   departmental  heads.  Upon  the Executive head falls the impossible task of coordinating and directing   the   entire   executive   branch.   Under   the Constitutional mandate  that gives  the President "executive power"   and directs  him  to  ensure  that  "the  laws  are faithfully  executed."   The   Council   of   Ministers   is accountable  for   the  entire  administrative  branch.  The bureaucracy has  a representative  function. In  the case of regulatory activity for example, administrators give meaning to broad  legislative declarations of social policy by their decisions  in   specific  cases.  In  advancing  the  social objectives of the community, they sometimes develop the rule or public interest which is applied when decisions are made. The bureaucracy  shares with  the legislature  the  task  of ensuring that  the community receives a reasonable amount of justice in  the distribution  of public resources. Moreover, by virtue  of a  recruitment policy that gathers individuals with socio-economic  backgrounds far  more varied than those of elected representatives. The bureaucracy mas be viewed as

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a truer  cross-section of  the nation,  providing  necessary supplement   to  the  incomplete  representation  which  the Parliament  offers.      Although   this   thesis   violates traditional   democratic   theory,   the   hard   facts   of administrative policy  determination and the official’s role in  compromising   group  demands   suggest  that   orthodox interpretations require  some modification  formulation  and principles  and   policies;  application  of  them  requires pragmatism with  broad vision  to elongate  the Constitution physolophy. Obviously,  therefore, full  faith was  given to their acts  and  actions.  In  selecting  among  alternative policies,  extending  or  narrowing  the  efficacy  of  rule policy, the  official  necessarily  must  work  in  a  value context.  Various   factors  impinging   upon  a  particular decision are  isolated and  require assignment  of  relative weights nor  in accordance  with what the official thinks is "right" but  in tune  with and to effectuate mandates of the constitution The  "public interest"  will  be  the  ultimate element in  this process.  In "Responsibility in Government; Theory and  Practice" by Herbert j Spiro had stated at pages 86-87 and 95 thus:      "...   Modern    law   and   modern      bureacycracy were  created to  fill      the same  needs. On  the Continent,      especially, the birth and growth of      each cannot be conceived of without      the other,  Administrative law  was      designed   to    make   responsible      conduct possible  for  the  ruler’s      new instruments,  the  bureaucrats,      by    giving     them    reasonable      expectations   of    the   probable      consequences of  their acts.  As it      became     more      than      just      administrative law facilitated more      responsible conduct for all to whom      it applied. Belief in the political      responsibility of  individuals is ,      therefore, intimately  linked  with      advocacy of  the rule  of law. This      rule  of  law,  together  with  the      resources already  mentioned, gives      us   two    components    of    the      deliberately   created,    explicit      casual responsibility  of the early      bureaucrats.       As   the   third      component, they  were endowed  with      not only  the capacity,  but    the      obligation, to  make decisions.  In      other words,  they had  to exercise      their discretion  when they applied      to specific cases the general rules      and instructions laid down for them      by the sovereign himself, or on his      behalf,  Finally,   the   carefully      cultivated esprit  de corps  of the      new public   services  and, indeed,      the  spirit  of  the  whole  epoch,      endowed both  public  servants  and      the subjects  on  whom  they  acted      with the  purpose and determination      needed to  make  the  novel  system      work."                X    X    X    X    X           "It   leads    us   also    to

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    characterise a healthy bureaucratic      situation   as   a   situation   of      responsibility par excellence."                X    X    X    X    X           "They consider the bureaucrat,      or the citizen, responsible so long      as he  is honest,  or at  least  to      punish, dishonesty.  The honesty of      public  servants  and  citizens  is      certainly an important matter."                X    X    X    X    X           "In     terms      of      the      constitutional,          democratic      postulate, each  citizen  delegates      parts  of  his  original,  general,      casual  responsibility   to   other      groups and individuals-to political      parties to  legislative  and  other      representatives, to  judges, and to      administrators.  Moreover,  in  the      course  of  the  constant  division      and  subdivision   of  labor,   new      special    responsibilities     are      created."      In "British Government and the Constitution Text, Cases and Materials"  by Colin  Turpin [Third  Edition-1995] it is stated at page 315 thus:      "Legitimacy is  primarily a feature      of   constitution   systems.   They      possess this qualify by virtue of a      general public  support  for  their      authority,  and   may  have  it  in      grater of lesser degree. Successive      government  even   unpopular  ones,      benefit   from    the    legitimacy      attaching  to   the  constitutional      order, so  that their  own  actions      are perceived  as  ’Legitimate’  It      will be  evident that  this  is not      the same thing as ’lawful’ although      legality is normally a condition of      legitimacy, in  that  a  government      which disregards the law is seen to      be  acting   disordantly  with  the      constitutional  system  from  which      its legitimacy is derived."      Reinhold  Niebuhr’s  has  stated  in  "The  Nature  and Destiny of  Man" Vol.ll [New York : Charles Scribner’s sons, 1948] p  266 at page 561 that bureaucracy, therefore, shares this responsibility  when it  talks  in  forward  thrust  to effectuate the  Constitutional  philosophy  lies  in  giving shape and  content not only to the policies laid down in the Constitution and  by the executive, but also applies them to given set  of facts.  In this case on the fats the executive bureaucracy has  forfeited the faith and credit according to them by the Constitution and betrayed public faith in honest and dispassionate  decision making  process and  in applying the given  set of  standards of  executive orders  in giving promotions to different classes of officers in diametrically opposite socio-economic  justice and equality of opportunity in promotion to the officers of the appellant-Association.      It is  settled law  that the  constitution having given the benefit  of reservation and having adopted the policy by the   Government, the  policy should  strictly be adhered to and it should not be made a farce and introducing at whin of

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the officers,  their own  criteria contrary  to the  general policy. Therefore, it was directed by this Court in state of U.P. Vs.  Dr. R.K. Tandon [(1995) 3 SCC  616] in paragraph 6 that the  rule of  reservation if applied and the candidates were  selected,   accordingly,  their   seniority  vis-a-vis general candidates  should be  in accordance with the roster maintained by  the state Government. The same was reiterated in State  of U.P. & Ors. vs. Dr. R.K. Tandon & Ors. [JT 1996 (7) SC 174] in paragraph 8 thus:      "Yet  another   problem  that   was      brought to our notice is that while      preparing their  inter se seniority      and fitment, the Government was not      strictly  following   the  rule  of      roster and  reserved for  Scheduled      Caste strictly   following the rule      of   roster    and   reserved   for      scheduled  caste,  scheduled  Tribe      and      Backward Class  candidates      and   their    placement   on   the      respective vacancies  earmarked for      them in  the roster.  It  would  be      obvious that  when  the  Government      makes     appointments      through      administrative   instructions    or      statutory rules, the appointment of      candidates should  be according  to      order  of  merit  and  roster.  The      Government should  follow the  rule      of     reservation     and     make      appointments as  per roster points.      That procedure  is also  prescribed      even   in   the   ad   hoc   Rules.      Therefore, even  appointments  from      the lists of 1971, 1977, 1978, 1979      and  among   those   retired   from      service or had the benefit of court      orders or non- selectees, the inter      se seniority  should accordingly be      determined  as   per  the  rule  of      reservation and  roster. Even among      the  non-selectees  when  they  are      appointed under  ad hoc  Rules  and      seniority under  Rule 7  thereof is      determined, the  same points should      be followed  this procedure so that      there will  not  be  any  deviation      from  the   rules  of  appointment,      reservation so  that and  the order      of  appointment      would   become      according  to   rules  and   remain      legal."      It is  not in  dispute  that  the  department  was  not preparing separate list of the general candidates, scheduled Castes and  scheduled Tribes  in integrating them as per the roster prepared  by the  Government. It is obviously illegal procedure followed  to deprive  the  officers  belonging  to scheduled Castes,  scheduled Tribes  and Backward classes in integrating their  seniority according to roster. Therefore, we have  no hesitation to quash the offending memo issued by the  Department   of  Provincial   Medical  Health  Service, Government   of U.P.  dated  July  28  1986  and  all  other incidental instructions issued in furtherance thereof.      The Government is directed to consider the cases of the three officers  and all other eligible officers according to

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rules in  vogue from 1973 till the date of introducing these offending rules. If necessary, the Government is directed to create supernumerary  post in  the respective  vacancies  to which the  three officers  are eligible to be considered and promoted in accordance with the rules with all consequential benefits.      The  writ   petition  is   accordingly   allowed.   The respondent  are  directed  to  consider  the  cases  of  the officers and  if found,  to promote  them or  any  of  other eligible officers  within a  period of  six months  from the date of  the receipt  of this  order with  all consequential benefits in  accordance with  the rules.  The cases  of  all other officers  should also be considered according to rules and  if   found  eligible,  they  may  be  promoted  against respective vacancies as per roster. No costs.