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CASE NO.:

Appeal (civil) 2177 of 1988

PETITIONER:

M.V. KRISHNA RAO AND ORS. ETC. ETC.

RESPONDENT:

UNION OF INDIA AND ORS. ETC. ETC.

DATE OF JUDGMENT: 27/01/1994

BENCH:

J.S. VERMA & B.P. JEEVAN REDDY & FAIZAN UDDIN

JUDGMENT:

JUDGMENT

WITH

Civil Appeal Nos. 399, 398, 396 and 397 of 1994.

1994(1)SCR 400

The Judgment of the Court was delivered by

B.P. JEEVAN REDDY, J. CIVIL APPEAL NO. 2177 OF 1988

1. The appellants are direct recruits to Indian Police Service (I.P.S.),

while the respondents 5 to 11 are promotees. In this appeal, directed

against the judgment of the Central Administrative Tribunal, Hyderabad, the

dispute pertains to the proper year of allotment to be assigned to

respondents 5 to 11. The Original Application in the Central Administrative

Tribunal was filed by the said respondents. The appellants as well as

respondents 12 to 14 in this appeal were impleaded as respondents 5 to 11.

Respondents 12 to 14 in this appeal are also direct recruits. Since they

did not join the appellants in filing this appeal, they have been impleaded

as respondents. For the sake of convenience, we shall refer to the

appellants as direct recruits and to respondents 5 to 11 as promotees.

2. The promotees were substantive members of the Andhra Pradesh State

Police Service. They were included in the select list prepared under and in

accordance with the I.P.S. Promotion Regulations on 9th January, 1978. Even

before the said date, all of them (except Sri K. Narsimha) were posted in

cadre posts. They continued to officiate in such cadre posts even after

January 9,1978, till they were appointed to the I.P.S. Respondent No. 5 was

appointed to I.P.S. on December 19, 1978, Respondent No. 6 on September

20,1979 and the remaining on November 13,1979. If their dates of

appointment to I.P.S. is taken as the basis, Respondent No. 5 would be

entitled to be assigned 1974 as his year of allotment while the other

respondents would get 1975 - and this is what the Government of India did.

The promotee- respondents' case, however, is that inasmuch as they have

officiated continuously in a cadre post, they were entitled to count their

service atleast from January 9,1978 (the date of their inclusion in the

selection list) for the purpose of determining their year of allotment and

that if so counted, they will get the year 1973 as their year of allotment.

The Central Administrative Tribunal has upheld this claim of the

Respondents 5 to 11.

3. The four appellants and respondents 12 to 14 (direct recruits) have been

assigned 1974 as their year of allotment. This is not in question. Since

they were likely to be affected by the grant of relief claimed by the

promotees, they were impleaded as respondents in the Original Application

before the Central Administrative Tribunal. These direct recruits contested

the promotees' claim before the Tribunal, so did the Government of India.

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4. The main question in this appeal is whether the continuous officiating

service rendered by the promotees in the cadre posts on and from January 9,

1978 is liable to be taken into consideration for the purposes of

determining their year of allotment? As indicated hereinabove, if this

service is counted they will be entitled to be assigned 1973 as their year

of allotment. Otherwise not.

Mr. R.F. Nariman, learned counsel for the appellants (direct recruits)

urged the following contentions:

(1) the posting of the promotees in cadre posts even before their

inclusion in the select list and before their appointment to I.P.S. is

contrary to rules and, therefore, of no effect.

(2) the continuation of the said respondents in cadre posts beyond three

months of their posting - at any rate, after the expiry of three months

from January 9, 1978 - is in clear violation of Rule 9 of the I.P.S.

(Cadre) Rules. Moreover, they could not be continued in the cadre post

beyond six months unless the central government accorded prior concurrence

thereto. Admittedly, no such prior concurrence was obtained. As a matter of

fact, the Government of India disapproved the said posting. If so, there

can be no question of counting such service for any purpose whatsoever.

(3) the posting of the promotees in the cadre posts was also illegal

inasmuch as on that date cadre officers were available. Ignoring the cadre

officers, the said promotees were posted to cadre posts in violation of the

Rules. For these reasons also, the said service cannot be counted.

(4) by virtue of Explanation (2) to Rule 3 of the I.P.S. (Seniority)

Rules, the service rendered in the cadre post prior to their appointment to

I.P.S. cannot be counted or taken into consideration for the reason that it

was by way of temporary local arrangement.

5. Sri P.P. Rao, learned counsel appearing for the promotees con-tested

the validity and correctness of the contentions urged by the appellants and

submitted that the promotee-respondents are not seeking to count their

service rendered in the cadre posts prior to their inclusion in the select

list; they are only seeking to count the continuous officiating service

rendered by them in the cadre posts on and after their inclusion in the

select list. In such a case there is no question of violation of any rules.

The learned counsel pointed out that it is not found by the Tribunal that

when any of these promotees was posted in cadre post, a cadre officer was

available. Counsel submitted that though the State Government addressed the

Central Government for granting approval of their posting, the Central

Government rejected the same only on 5th January, 1985. Soon thereafter,

the promotees submitted a memorandum to the President of India and finding

no response thereto, they approached the Tribunal in the year 1986. Counsel

further pointed out that when the promotee-respondents were posted in cadre

posts, none of the direct recruits concerned herein was eligible to hold

those posts and, therefore, they have no locus standi to contest the claim

of the promotees.

6. A few relevant rules need be noticed for a proper appreciation of the

controversy. Rule 3 of the I.P.S. (Regulation of Seniority) Rules, 1954

prescribes the manner in which the year of allotment should be assigned to

a member of the I.P.S. Rule 3, insofar as it is relevant, reads thus:

"3. Assignment of Year of Allotment - (1) Every officer shall be assigned a

year of allotment in accordance with the provisions hereinafter contained

in this rule.

(2) [omitted as unnecessary]

(3) The year of allotment of an officer appointed to the Service after the

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commencement of these rules shall be-

(a) where the officer is appointed to the Service on the results of a

competitive examination the year following the year in which such

examination was held;

(b) where the officer is appointed to the Service by promotion in

accordance with rule 9 of the Recruitment Rules, the year of allotment of

the junior-most among the officers recruited to the Service in accordance

with rule 7 of these Rules who officiated continuously in a senior post

from a date earlier than the date of commencement of such officiation by

the former;

Provided that the year of allotment of an officer appointed to the Service

in accordance with rule 9 of the Recruitment Rules who started officiating

continuously in a senior post from a cadre earlier than the date on which

any of the officers recruited to the Service, in accordance with rule 7 of

those Rules, so started officiating shall be determined ad hoc by the

Central Government in consultation with the State Government concerned.

Explanation I. - In respect of an officer appointed to the Service by

promotion in accordance with sub-rule (1) of rule 9 of the Recruitment

Rules, the period of his continuous officiation in a senior post shall, for

the purposes of determination of his seniority; count only from the date of

the inclusion of his name in the Select List, or from the date of his

officiating appointment to such senior post whichever is later.

Explanation 2. - An officer shall be deemed to have officiated continuously

in a senior post from a certain date if during the period from that date to

the date of his confirmation in the senior grade he continues to hold

without any break or reversion a senior post otherwise than as a purely

temporary or local arrangement."

(Rest of the rule omitted as unnecessary)

7. The purport of the Rule is: (i) in the case of a direct recruit, the

year of allotment shall be the year following the year in which the

relevant competitive examination was held; (ii) In the case of a promotee,

his year of allotment shall be the year of allotment assigned to the

junior-most among the direct recruits who officiated continuously in a

senior post from a date earlier than the date of commencement of

officiation by such promotee; (iii) In the case of a promotee, the period

of his continuous officiation in a senior post shall count from the date of

inclusion of his name in the Select List or from the date of his continuous

officiating appointment, whichever is later. Explanation (2) seeks to

exclude the period of temporary posting made by way of local arrangement

from the purview of continuous officiating service.

8. The next rule to be noticed is Rule 9 of the I.P.S. (Cadre) Rules.

Since this rule is of crucial relevance to this case, it would be

appropriate to set out the Rule in its entirety, as it obtained at the

relevant time:

"9. Temporary appointment of non-cadre officers to cadre posts. - (1) A

cadre post in a State may be filled by a person who is not a cadre officer

if the State Government "or any of its Heads of Department to whom the

State Government may delegate its powers of making appointment to cadre

posts"; is satisfied-

(a) that the vacancy is not likely to last for more than three months; or

(b) that there is no suitable cadre officer available for filling the

vacancy:

Provided that where a cadre post is filled by a non- select list officer,

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or a select list officer who is not next in order in the select list, under

this sub-rule, the State Government shall forthwith report the fact to the

Central Government together with the reasons therefore.

(2) Where in any State, a person other than a cadre officer is appointed to

a cadre post for a period exceeding three months the State Government shall

forthwith report the fact to the Central Government together with the

reasons for making the appoint-ment.

Provided that a non-select list officer, or a select list officer who is

not next in order in the select list shall be appointed to a cadre post

only with the prior concurrence of the Central Government.

(3) On receipt of a report under sub-rule (2) or otherwise the Central

Government may direct that the State Government shall terminate the

appointment of such person and appoint thereto a cadre officer and where

any direction is so issued, the State Government shall accordingly give

effect thereto.

(4) When a cadre post is likely to be filled by a person who is not a cadre

officer for a period exceeding six months, the Central Government shall

report the full facts to the Union Public Service Commission with the

reasons for holding that no suitable officer is available for filling the

post and may in the light of the advice given by the Union Public Service

Commission give suitable directions to the State Government concerned."

9. A reading of Rule 9 indicates that it speaks of two categories of

officers, viz., (a) officers included in the Select List but not appointed

to the I.P.S. and (b) non-cadre non-select-list officers (those who are

neither included in the select list nor appointed to I.P.S.). Sub-rule (1)

says that where a vacancy is not likely to last for more than three months

or where there is no suitable cadre officer available for filling the

vacancy, the State Government may fill a cadre post by a person who is not

a cadre officer. The proviso, however, says that where a cadre post is

filled by a non-select list officer or a select list officer who is not

next in order in the said list, the State Government shall forthwith report

the fact to the Central Government together with reasons for such posting.

Sub-rule (2) says that where a person other than a cadre officer is

appointed to a cadre post for a period exceeding three months the State

Government shall forthwith report that fact to the Central Government

together with the reasons for making the appointment. The proviso to this

sub-rule says that no non-select list officer or a select list officer who

is not next in the order in the said list shall be appointed to a cadre

post except with the prior concurrence of the Central Government. Having

regard to the context in which this proviso occurs, its operation appears

to be confined to sub-rule (2) alone, i.e., continuation of a non-cadre

officer in a cadre post beyond three months. (It is, however, not necessary

for our purposes to express any definite opinion on this aspect.) Sub-rule

(3) empowers the Central Government to direct the State Government, on

receipt of a report under sub- rule (2) or otherwise, to terminate the

appointment of such a person and to appoint a cadre officer thereto. Such

direction is binding upon the State Government. Sub-rule (4) creates an

obligation upon the Central Government to consult the Union Public Service

Commission where a cadre post is likely to be filled by a non-cadre officer

for a period exceeding six months. The sub-rule further says that the

Central Government shall issue suitable directions in the light of the

advice given by the U.P.S.C. This Rule, it is evident, is conceived as a

check upon the propensity of the State Government to prefer their own State

officers in the matter of posting in cadre posts thereby seeking to confer

upon them undue benefits at the cost of other officers.

10. We may next refer to Rule 9 of I.P.S. (Recruitment) Rule. The

Recruitment Rules speak of the several sources from which appointment is

made to the I.P.S. Rule 9 deals with recruitment by promotion. It says that

the quota of the promotees shall not exceed 1/3 of the number of posts

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shown against item 1 and 2 of the cadre in relation to that State in the

Schedule to the I.P.S. (Fixation of Cadre Strength) Regulations, 1955.

11. Let us now examine the facts of the case in the light of the above

rules. Though the promotees were posted to cadre posts even prior to the

date of their inclusion in the select list, they do not claim to count it

for the purpose of determining their year of allotment. By virtue of the

Explanation (1) to Rule 3 of the Seniority Rules, they are entitled to

count the lesser period alone, which in their case the lesser period alone,

which in their case happens to be their continuous officiation from the

date of their inclusion in the select list. This is the effect of the

Explanation (1) to Rue 3(3) of Seniority Rules. But, say the appellants-

direct recruits, the posting and continuance of the promotees in the cadre

posts even sub-sequent to their inclusion in the select list is illegal,

being contrary to Rules and hence, it cannot be counted for any purpose

whatsoever. The four grounds urged by them in this behalf have been set out

hereinbefore. With a view to clear the ground, we may say at one that the

Tribunal has not recorded any finding nor is any material placed before us

to show that on January 9, 1978 any cadre officers were available and that

inspite of the same the said promotees were posted to cadre posts. There is

also no finding......though it is not strictly relevant for the present

purpose.........to the effect that when the said promotees were posted in a

cadre post (first continuous officiating posting) any cadre officers were

available but were ignored. Similarly, Sri Nariman's contention that by

virtue of Explanation (2) to Rule 3.(3) of Seniority Rules, the promotees'

service prior to their appointment to I.P.S cannot be counted for the

purpose of determining the year of allotment is equally unsustainable. No

finding is recorded by the Tribunal - nor any material placed before us to

show - that the posting of the promotees in cadre posts, particularly after

January 9,1978, was by way of a local arrangement or temporary. We cannot

also agree with Sri Nariman that for continuance of these promotees beyond

three months or six months, as the case may be, prior concurrence of the

Central Government was obligatory. The proviso to sub-rule (2) - which

alone speaks of prior concurrence - does not apply to select-list officers,

unless the officer 'not next in order' in such list is appointed. It is not

suggested that such was the case in the matter of posting of any of the

promotees concerned herein. The other requirement of Rule 9 of Cadre Rules,

viz., the obligation of the State Government to report forthwith the said

fact to the Central Government together with the reasons for such

appointment - provided by sub-rule (2) - has been complied with. Indeed,

the case of the promotees is that though the State Government promptly

intimated the Central Government of their posting in cadre posts, the

Central Government took an inordinately long time to respond and that wrote

back only on January 5, 1985 disapproving the said posting - not on ground

of violation of Rule 9 of Cadre Rules but on the ground of over-

utilisation of deputation reserve. The said disapproval is also the subject

matter of challenge in the Original Application filed by the promotees in

the Tribunal. The Tribunal has gone into this aspect elaborately and has

held that the alleged over-utilisation of deputation reserve cannot

constitute a relevant ground for depriving the promotees of their service

subsequent to January 9, 1978 for the purpose of Explanation (1) to Rule

3(3) of Seniority Rules. No arguments have been addressed before us seeking

to dispute the said finding.

12. In this view of the matter, we do not think it necessary to refer to

the decisions cited by counsel before us. All of them are referred to and

discussed elaborately in the judgment of the Tribunal. The two later

judgment, viz., Syed Khalid Rizvi and Others v. Union of India and Others,

[1993] Suppl. 3 S.C.C. 575 and H.R. Kasturi Rangan v. Union of India &

Ors., C.A. 3891-95/93 dated 28.7.1993, refer to and reiterate the

principles enunciated in the earlier judgments of this Court and the view

taken by us herein accords with the ratio of the said judgments. For the

above reasons, the appeal fails and is accordingly dismissed. No costs.

Civil Appeal No 399 of 1994. S.L.P. (C) No. 14045 of 1991

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13. Leave granted.

No separate arguments are addressed in this matter. In the judgment under

appeal, the Tribunal directed the Central Government to assign the year of

allotment to the applicants before it with reference to their continuous

officiation. The two original applicants (Respondents 4 and 5 in this

appeal) were included in the select list on March 20, 1979 and they were

posted in a cadre post subsequent to the said date. Applying Explanation

(1) to Rule 3(3), the Tribunal directed that they shall be given the

benefit of continuous officiation in the cadre post, and that the Central

Government shall determine the year of allotment and their seniority on

that basis. Since the said direction is consistent with the view taken by

us in Civil Appeal No. 2177 of 1988, this appeal is dismissed. No costs.

Civil Appeal No 398 of 1994. S.L.P. (C) No. 4861 of 1991

14. Leave granted.

No separate arguments were addressed in this appeal. It appears that the

original applicant, Sri D. Narayana Rao (Respondent No. 27 in this appeal)

was included in the select list approved on November 4, 1981. He was

appointed to officiate in a cadre post on February 6, 1982 and he continued

to officiate as such till December 23, 1982 when he was appointed to the

service. The Tribunal negatived his claim to count his officiating service

between July 19, 1979 and August 19, 1980 for the purpose of determining

his year of allotment, there is no appeal by the applicant. The Tribunal

has directed that the applicant (Respondent No. 27 in this appeal) is

entitled to reckon seniority in the senior scale of the I.P.S. from January

6, 1982 under Rule 3(3)(b) of the Seniority Rules and that he is also

entitled to be assigned 1977 as the year of allotment. It is not submitted

before us that on the reasoning of the Tribunal, the said respondent

(original applicant) is not entitled to 1977 as his year of allotment.

The appeal is accordingly dismissed. No costs.

Civil Appeal No 396 of 1994. S.L.P. (C) No. 9636 of 1992

15. Leave granted.

In the original application before the Tribunal from which this appeal

arises, there were three applicants who are impleaded as Respondents 1 to 3

in this appeal. The Tribunal has found that inasmuch as the original

applicants were included in the select list of 1982, their seniority can be

counted only from the date of such inclusion. So far as the assignment of

year of allotment to the applicants is concerned, the Tribunal has directed

that the matter is governed by the majority judgment pronounced by it on

September 5, 1991 in Original Application No. 214 of 1988 G. Ramachandra

Reddy v. Union of India & Ors., Following the said majority judgment, the

Tribunal directed the Union of India to fix the year of allotment of the

said applicants taking December 28, 1982 as the dates of their continuous

officiation in senior posts in accordance with the Rule. It is obvious that

the said direction must be understood and acted upon in accordance with the

principle enunciated in paras 14 to 16 of the judgment in Syed Khalid Rizvi

and in this judgment (in Civil Appeal No. 2177 of 1988).

The appeal is accordingly dismissed. No costs.

Civil Appeal No 397 of 1994. S.L.P. (C) No. 9637 of 1992

16. Leave granted.

In this case too, the Tribunal has directed the Union of India to determine

the year of allotment to which the original applicants (impleaded as

Respondents 1 and 2 in this appeal) are entitled to. The said two

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respondents (original applicants) were included in the select list on

November 4, 1981. The first applicant, Sri K. Rushiya Rao was posted on

August 21, 1981 in a cadre post in which he continued to officiate till he

was appointed to I.P.S. on October 17, 1984. So far as the other applicant,

Sri R.C. Venkateshwarlu is concerned, he was posted in a cadre post only on

June 9, 1983 wherein he continued to officiate till his appointment to

I.P.S. on October 17, 1984. So far as K. Rushiya Rao is concerned, the

Tribunal has directed that November 4, 1981 should be taken as the relevant

date for the purpose of determining his year of allotment. In the case of

R.C. Venkateshwarlu, however, it was of the opinion that a strict

application of Explanation (I) to Rule 3(3) would result in grave injustice

to the said respondent for the several reasons stated by it and, therefore,

it recommended that a relaxation may be granted to him so as to enable him

to treat November 4,1981 as the relevant date for determining his year of

allotment. We have not been pursuaded to hold that the directions made by

the Tribunal are in any manner contrary to law.

The appeal is accordingly dismissed.