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CASE NO.: Appeal (civil)  2294-2329 of 2008

PETITIONER: Union Public Service Commission

RESPONDENT: Dr. Jamuna Kurup & Ors

DATE OF JUDGMENT: 21/02/2008

BENCH: CJI K. G. Balakrishnan & R. V. Raveendran & J. M. Panchal

JUDGMENT: J U D G M E N T Reportable

CIVIL APPEAL NO 2294-2329 OF 2008  (Arising out of SLP(Civil) Nos. 1255-90 of  2005)

K.G. BALAKRISHNAN, CJI.  

       Leave granted. Heard counsel.

2.      The Union Public Service Commission (for short ’UPSC’) has filed  these appeals against the judgment dated 26.4.2004 of a learned Single  Judge of Delhi High Court in WP (C) Nos. 4787-4823/2004.  

3.      The Municipal Corporation of Delhi (respondent no.38 herein, for  short ’the Corporation’ or ’MCD’) had sent a requisition to UPSC the  appellant herein for recruiting 45 Ayurvedic Vaids (that is, Medical Officers  \026 Ayurved). As the process of selection by UPSC was likely to take  considerable time the Corporation issued an advertisement dated 18.10.2000  inviting applications for contract appointment (on the basis of a walk-in  interview) on a fixed salary of Rs.10,000/- for a period of six months or till  such time such posts are filled on regular basis through UPSC, whichever  was earlier.  

4.      It is stated that respondents 1 to 37 (for short ’respondents’) applied  for such contractual employment and were appointed in April, 2001. The  letters of appointment on contract basis were issued to respondents in terms  of the advertisement. As the UPSC selections was delayed, the contract  appointment of respondents were renewed for periods of six months each by  office orders issued in October 2001, May 2002, October 2002, May 2003  and October 2003.  

5.       By advertisement dated 13.3.2004 (corrected on 27.3.2004) UPSC  advertised 45 posts of Ayurvedic Vaids. The term regarding age limit in the  said advertisement prescribed that the age limit of the candidate (as on  1.4.2004) should not exceed 35 years. It further provided :  "Age is relaxable for employees of Municipal Corporation of Delhi  up to five years\005 Age is relaxable up to five years for SC/ST, and  up to three years for OBC in respect of vacancies reserved for  them. Age is also relaxable for employees of the Government of  India and Union Territories upto five years."  

6.      Respondents filed WP(C) Nos.4787-4823/2004 in Delhi High Court  seeking a direction to the Corporation to regularize their services in the  vacant posts of Medical Officer (Ayurved) with effect from the respective  dates of their initial appointment. Alternatively, they prayed that if the High  Court was of the view that they could be regulated only pursuant to UPSC

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selection process, then to grant them due weightage for the service rendered  by them on contract basis, and also extend the age relaxation by five years to  those who were aged more than 35 years and had worked on contract basis  for three years. They also sought a direction to the Corporation to extend the  benefit of regular pay scale with consequential benefits and perks attached to  the regular post of Ayurvedic Vaids, from the date of their initial  appointment. However, when the writ petitions came up for hearing, the  respondents (Writ petitioners) submitted that they would be satisfied if two  directions were issued, the first being that those who had become overaged  should be given the benefit of age relaxation and second, they should not be  replaced by persons other than regular appointees.       

7.      The learned Single Judge was of the view that the writ petitioners  were entitled to the said two limited reliefs. Therefore, he disposed of the  writ petitions by order dated 26.4.2004 directing that those writ petitioners  who had crossed 35 years would be entitled to the benefit of age relaxation  corresponding to the number of years they had worked as contractual  Medical Officers (Ayurved) under the Corporation and should be treated as  eligible with reference to age requirement. He also directed that the services  of the writ petitioners should not be replaced by anyone save and except  those appointed on regular basis after undergoing the selection process.  

8.      The UPSC chose to approach this Court by filing SLPs against the  order of the learned Single Judge, bypassing the remedy of appeal to the  Division Bench, in view of the pendency of a similar issue before this Court  in SLP (C) No. 15714/2003 (UPSC vs. Girish Jayantilal Vaghela). The  special leave petitions from which these appeals arise, were originally  tagged to Vaghela’s case on 19.1.2005, but by a subsequent order dated  1.12.2005, they were delinked and ordered to be heard separately.

9.      The UPSC contended that the term ’age is relaxable for employees of  Municipal Corporation of Delhi’ in the advertisement dated 13.3.2004, is  intended to refer only to regular and permanent employees of MCD. It was  also contended that being short term contract employees, the respondents  cannot claim to be ’employees of MCD’. For this purpose reliance was  placed on the decision of this Court in UPSC vs. Girija Jayantilal Vaghela \026  2006 (2) SCC 482, wherein this Court held that persons working on short  term contract basis cannot claim the status of Government Servants. UPSC  submitted that on a similar interpretation, ’employees of MCD’ will not  include contract employees.  

10.     The learned counsel appearing for the respondents submitted that the  decision in Vaghela did not apply to the respondents as they did not claim to  be government servants. He submitted that the respondents claimed age  relaxation as employees of MCD which was specifically provided in the  advertisement. We have already noticed that the UPSC advertisement (No.  SPL-03-2004) clearly specified that the age limit of 35 years was relaxable  for employees of Municipal Corporation of Delhi, up to five years.  Therefore, the only question that arises for consideration is whether the word  ’employees of MCD’ should be construed as referring only to permanent or  regular employees of MCD as contended by UPSC or to all employees of  MCD including contract employees, as contended by respondents.  

11.     Even the UPSC recruitment advertisement for the subsequent year  (Advertisement No.SPL-54-2005 dated 23.7.2005 issued during the  pendency of these matters) inviting applications for filling 16 posts of  Medical Officers (Ayurved) in the Municipal Corporation of Delhi (and  similar posts in NDMC and Union Territories) provided for age relaxation as  follows :  "AGE : Not exceeding 35 years on normal closing date. Not exceeding 38  years for Other Backward Classes candidates  and not exceeding 40 years  for Scheduled Castes and Scheduled Tribes candidates in respect of  vacancies reserved for them. Relaxable for central government servants as  per the instructions issued by Government of India including  NDMC/MCD from time to time up to five years. Age is also relaxable for

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employees of NDMC and MCD in respect of the posts in NDMC and  MCD respectively up to five years."  

By interim order dated 9.12.2005, this Court permitted the overaged  respondents to sit for the examination in relation to the 2005 advertisement  subject to the condition that the UPSC shall not publish the result until  further orders. By subsequent order dated 9.3.2007, the said interim order  was vacated and UPSC was permitted to publish the results and MCD was  permitted to proceed with the appointment of candidates selected by UPSC.  We are informed that UPSC has neither declared the results nor MCD  proceeded to make appointments. Be that as it may.           12.     Recruitment to posts in MCD is governed by the Delhi Municipal  Corporation Act, 1957 (’Act’ for short). Section 90 of the Act contemplates  appointment of persons to either permanent posts or temporary posts.  Section 90(6) provides that the Standing Committee may on the  recommendations of the Commissioner create for a period not exceeding six  months any category A or category B post. Section 92 provides that the  power to appoint employees whether permanent or temporary shall vest in  the Commissioner. Section 96 provides that no appointment to any category  A post shall be made except after consultation with the UPSC, but no such  consultation is necessary for selection for appointment to any acting or  temporary post for a period not exceeding one year. We have referred to  these provisions only to show that employment under the Municipal  Corporation of Delhi could be either permanent/regular or short  term/contractual.  

13.     The term ’employee’ is not defined in the Delhi Municipal  Corporation Act, 1957. Nor is it defined in the advertisement of UPSC. The  ordinary meaning of ’employee’ is any person employed on salary or wage  by an employer. When there is a contract of employment, the person  employed is the employee and the person employing is the employer. In the  absence of any restrictive definition, the word ’employee’ would include  both permanent or temporary, regular or short term, contractual or ad hoc.  Therefore, all persons employed by MCD whether permanent or contractual  will be ’employees of MCD’. The respondents who were appointed on  contract basis initially for a period of six months, extended thereafter from  time to time for further periods of six months each, were therefore,  employees of MCD, and consequently, entitled to the benefit of age  relaxation. If the intention of MCD and UPSC was to extent the age  relaxation only to permanent employees, the advertisement would have  stated that age relaxation would be extended only to permanent or regular  employees of MCD or that the age relaxation would be extended to  employees of MCD other than contract or temporary employees. The fact  that the term ’employees of MCD’ is no way restricted, makes it clear that  the intention was to include all employees including contractual employees.  Therefore, we find no reason to interfere with the judgment of the High  Court extending the benefit of age relaxation.  

14.     The learned counsel for appellant submitted that the advertisement  granted age relaxation to employees of MCD and employees of government  of India, and that the words ’permanent’ or ’regular’ were not used either  with reference to ’employees of government’ or ’employees of MCD’. It is  pointed out that in Vaghela (supra), this Court while dealing with persons  employed in identical circumstances, that is ’engaged for a period of six  months from the date of joining or till a candidate selected by UPSC joined  on regular basis’, held that the term ’government servant’ did not refer to or  include persons employed on contract basis. It is argued that on the same  principle, the term ’employees of MCD’ cannot include a contract employee  of MCD. We cannot agree. Vaghela (Supra) related to contract employment  by a government  whereas in this case the contract employment is by a  Municipal Corporation. The reason that weighed with this Court in Vaghela  to hold that a contract employee was not a government servant, was in view  of the special connotation of the term ’government servant’. This Court after  referring to the decision of the Constitution Bench in Roshanlal Tandan vs.

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Union of India \026 1968 (1) SCR 185, and the decision in Dinesh Chandra  Sanpma vs. State of Assam \026 1977 (4) SCC 441, held that employment under  the government is a matter of status and not a contract even though  acquisition of such a status may be preceded by a contract; and that contract  employees of the government were governed by the terms of contract and  did not possess the status of government servants nor were governed by  rules framed under Article 309 of the Constitution, nor enjoyed the  protection under Article 311. But a Municipal Corporation is not  ’government’, and municipal employees are not government servants  governed by Article 309 to 311. Though permanent employees of municipal  corporation or other statutory bodies may be governed by statutory rules,  they do not enjoy the status of government servants. Therefore, the decision  in Vaghela, rendered with reference to government servants may not be of  any assistance in interpreting the term ’employees of MCD’. In fact, for that  very reason, these matters were de-linked from the hearing of Vaghela.  

15.     In view of the above, we dismiss these appeals. We also direct UPSC  to declare the withheld results of respondents who had participated in the  examination in pursuance of the interim orders of this Court and grant the  benefit of age relaxation as per the direction of High Court.