REPORTABLE
IN THE SUPREME COURT OF INDIA
CIVIL APPELLATE JURISDICTION
CIVIL APPEAL No.7696 OF 2009
STATE OF UTTARANCHAL & ORS. ......APPELLANTS
VERSUS
C.S.R.K.S. MEDICAL HEALTH SERVICES, UTTARANCHAL .......RESPONDENT
WITH
CIVIL APPEAL No.972 OF 2010
CIVIL APPEAL No.974 OF 2010
CIVIL APPEAL No.975 OF 2010
CIVIL APPEAL No.973 OF 2010
J U D G M E N T
J.S.KHEHAR, J.
1. Heard learned counsel for the parties.
2. The applications for impleadment are dismissed as no ground for
impleadment is made out.
3. The State of Uttaranchal (now Uttarakhand) is in appeal
against a number of orders passed in a bunch of cases on 04.03.2006. The
issue which was the subject matter of consideration before the High Court
pertains to the criterion for promotion from Group `D' service, to the
lowest ranks of ministerial posts in Group `C' service. Even though,
various Rules were framed from time to time delineating the manner and
method for onward promotion from Group `D' service to the lowest ranks of
ministerial posts, yet we are satisfied, that insofar as the present
controversy is concerned, the same would be regulated by the Uttaranchal
Government Servants (Criterion for Recruitment by Promotion) Rules, 2004
(hereinafter referred to as the `2004 Rules'). The aforestated Rules were
notified on 15.06.2004. Rule 1 of the 2004 Rules reads as under:
“1. Short title Commencement and Extent-(1) These rules may be
called, the Uttaranchal Government Servants (Criterion for Recruitment by
Promotion) Rules, 2004.
(2) They shall come into force at once.
(3) They shall apply to a recruitment by promotion to a post or
service for which no consultation with the Public Service Commission is
required on the principles to be followed in making promotions under the
Uttaranchal Public Service Commission (Limitation of Functions)
Regulations, 2003, as amended from time to time.”
4. A perusal of Sub-rule (3) of Rule 1 explicitly mandates that
the 2004 Rules would regulate promotion to such posts with reference to
which consultation with the Public Service Commission is not required. It
is not a matter of dispute, that the promotional posts under consideration,
do not require consultation with the Public Service Commission, and as
such, the 2004 Rules would apply to the promotional avenues under
consideration.
5. Rule 2 of the 2004 Rules is also of material relevance. During
the course of hearing, learned counsel for the rival parties invited our
attention to different Rules framed under Article 309 of the Constitution
of India, promulgated in the years 1985, 1994 and 2004 (besides the 2004
Rules). It is, therefore, that Rule 2 of the 2004 Rules assumes
significance. The same is being extracted hereunder:
“2. Overriding effect- These rules shall have effect notwithstanding
anything to the contrary contained in any other service rules made by the
Governor under the proviso to Article 309 of the Constitution, or Orders,
for the time being in force.”
A perusal of Rule 2 of the 2004 Rules leaves no room for any doubt,
that the 2004 Rules have an overriding effect, notwithstanding anything to
the contrary contained, in any other Service Rules promulgated under
Article 309 of the Constitution of India. Suffice it to state, that all
the other Rules brought to our notice, had been notified prior to the
Notification of the 2004 Rules (notified on 15.06.2014). Thus viewed, it
is imperative for us to conclude, that the 2004 Rules have an overriding
effect on the other Rules, to which our attention was invited, during the
course of hearing.
6. Insofar as the present controversy is concerned, the same
shall have to be determined with reference to Rule 4 of the 2004 Rules.
The above Rule, was also the only Rule relied upon by the High Court, while
adjudicating upon the controversy. Rule 4 aforementioned is being
reproduced below:
“4. Criterion for Recruitment by Promotion- Recruitment by promotion to the
post of Head of Department, to a post just one rank below the Head of
Department and to a post in any service carrying the pay scale the maximum
of which is Rs.18,300 or above shall be made on the basis of merit, and to
the rest of the posts in all services to be filled by promotion, including
a post where promotion is made from a Non-gazetted post to a Gazetted post
or from one service to another service, shall be made on the basis of
seniority to the rejection of the unfit.”
7. There can be no doubt whatsoever that inter se merit is
inconsequential for promotions under Rule 4 of the 2004 Rules, insofar as
promotions from Group `D' service, to the lowest ranks of ministerial posts
in Group `C' service, are concerned. This is for the reason because the
promotions under reference are neither to the post of Head of Department
nor to a post just one rank below the post of Head of Department. It is
also not the case of either of the parties that the scale of the posts
concerned bring the same out of the purview of Rule 4 of the 2004 Rules.
The real mandate of the said Rule is, that for the posts under reference
seniority would regulate onward promotion, however, subject to the
condition of suitability. Inasmuch as, promotions are to be made on the
basis of seniority, subject to the “rejection of the unfit”. It is in the
aforesaid background, that we shall determine the validity of two
Government Orders. Firstly, the order dated 17.07.2004 was assailed before
the High Court, in Special Appeal No.10 of 2006 (arising out of Writ
Petition No.945 of 2004). The aforesaid Government Order dated 17.07.2004,
is the subject matter of consideration in Civil Appeal No.975 of 2010. The
aforesaid Government Order dated 17.07.2004 is being extracted hereunder:
“From
Joint Director(Education)
Kumaon Division
Nainital.
To
District Education Officer
Nainital/Almora/Pithoragarh/Udhamsingh Nagar/Bageshwar/Champawat
Letter No.Pra-3/4006-25/04-05 Dated 17.07.04
Subject: Regarding Promotion of Class-IV Employees (Group-`D’) on the Post
of Junior Clerks in Subordinate offices Ministerial Staff Class-III (Group-
`C’).
Sir,
With reference to above, and in pursuance of the instructions
issued by the Director of Education, Uttaranchal, Dehradun vide his letter
No.Pra-1/5302-03/04-05 dated 07.06.2004 and letter No.Pra-
1/Pri.Promotion/5496-97/04-05 dated 08.06.2004 and the Government Order
No./885/Karmik-02/03 dated 02.09.2003, the Schedule and programme for
taking necessary action for promotion of Class-IV employee of your division
on the post of Junior Clerk, is being forwarded herewith.
You are requested to get the forms duly filled up and submitted
by the eligible Class-IV employees of your district so that all the
eligible class-IV employees may submit relevant information as per the
format.
Only those Class-IV employees shall be eligible to apply who have minimum
qualification of high school or equivalent and have regularly worked for 5
years in the Education Department and is substantively appointed.
The time schedule for holding examination for promotion of Class-IV
employees on the post of Junior Clerk is being forwarded herewith to enable
you to take further necessary action accordingly.
Date of submission of certified copy
of the confidential report of the past
5 years submitted before the District
Education Officer. 08.08.2004
Date of submission of list (in
triplicate) compiled at District
Level of the forms received and the
Confidential Reports with details
After Verification in respect of
High School pass Candidates separately
In the Office of Joint Director,
Education, Kumaon Mandal Office. 14.08.2004
(C) Date and place to hold examination. 22.08.2004
Government Inter College, Nainital
(There will be one question paper in
Written Examination with two parts
1 – Hindi Essay, 2. General Knowledge.
Each question paper will consist of 15
Marks). Total 30 marks.
You are requested to inform to all concerned in your District in
all offices/colleges. The notice may be pasted on the notice board to
ensure that no eligible employee is deprived of the opportunity of the
promotion.
The information to be compiled at District Level should be
prepared in A5 paper in the Computer and a floppy may also be forwarded
with this information.
It may be ensured that while compiling information that serial
number of the compiled information and the compiled format are in same
seriatum.
Sd/-
Dan Singh Rautela
Joint Director(Education)
Kumaon Division, Nainital”
8. The second order, assailed before the High Court was dated
08.11.2004. The same came up for consideration before the High Court in
Civil Appeal No.9 of 2006 (arising out of Writ Petition No.78 of 2005). The
above Government Order dated 08.11.2004 is being extracted hereunder:
“From
Additional Director
Medical & Health
Kumaon Mandal, Nainital.
To
The Chief Medical Officer/
Chief Medical Superintendent
Almora, Pithoragarh, Udhamsingh Nagar/
Nainital/Balaswar/Champawat.
No.E-4/2004/1770-22 dated 8.11.2004.
Sub: To provide opportunity to appear in typing test to those candidates
who did not appear earlier in the typing test in the written examination
conducted for promotion from class IV to the post of junior clerk.
Sir,
As per direction of Director General, Medical Health and Family Welfare,
Uttaranchal, Dehradun vide his letter no.IV category/37/2002/26233 dated
25.10.2004, those class IV employees who appeared in written examination of
captioned mentioned promotion and who could not appear in the typing test
conducted earlier, are being given another opportunity to appear in typing
test.
Therefore, a list of such candidates is enclosed herewith. You are
requested to inform intimation to this effect to all those employees
mentioned in the said list of your district wherever they are posted that a
typing test is being conducted on 4.12.2004 at 11.00 a.m. in the office of
Additional Director, Medical Health and Family Welfare, Kumaon Division,
Nainital. The concerned candidate should appear at 10.00 a.m. in the
concerned division alongwith an identity card or a certificate issued by
the Medical Incharge.
A notice to this effect may be published in Dainik Jagran and Amar Ujala
also so that no candidate is deprived of such opportunity.
Sd/-
H B Bhatt
Additional Director”
9. The High Court while disposing of the bunch of cases on
04.03.2006, set aside both the Government Orders dated 17.07.2004 and
08.11.2004, by holding that they violated the mandate contained in Rule 4
of the 2004 Rules. The question to be determined by us is, whether the
mandate of Rule 4 of the 2004 Rules, was indeed breached by the aforestated
two Government Orders.
10. In its determination, the High Court was of the view, that Rule
4 of the 2004 Rules postulates only one criterion for promotion, namely,
seniority. And that, seniority was the only relevant factor for determining
onward promotion from Group `D’ service to the lowest ministerial posts of
Group `C’ service. Keeping in view the facts and circumstances of the
present controversy, we are of the view that the High Court erred in
recording the aforesaid determination. Whilst there can be no doubt that
Rule 4 postulates seniority as the basis for onward promotion, but the Rule
also provides, that promotions would be made subject to the “rejection of
the unfit”. If the Government Orders dated 17.07.2004 and 08.11.2004 were
the basis of determining the fitness of concerned employees for onward
promotion and for adopting measures for “rejection of the unfit” then the
two Government Orders would squarely fall within the purview of Rule 4 of
the 2004 Rules. Otherwise, they would be in conflict therewith.
11. We have extracted hereinabove both the Government Orders. We
are satisfied that it was the endeavour of the Government to determine
fitness of Group `D’ employees, for onward promotion to the lowest rank of
ministerial posts in Group `C’ service. We say so because, it is apparent
to us, that Group `D’ posts comprise of posts in the nature of Peons,
Messengers, Chaukidars, Malis, Farrashes, Sweepers, Watermen, Bhistis,
Tindals, Thelamen, Recordfilters, Peon-Jamadars, Daftris, Book-binders,
Cyclostyle Operators, Farrash-Jamadars, Sweeper-Jamadars and Head Malis.
The nature of duties of the posts referred to hereinabove, are too well-
known. Merely because an employee while holding a Group `D’ post has been
discharging the duties, of the nature referred to above, it cannot be
presumed that he/she is suitable for onward promotion to a ministerial
post. It is, therefore, that while determining the issue of onward
promotion to ministerial posts, the State Government issued inter alia the
above two Government Orders extracted hereinabove. Thereby, it would be
possible to determine the fitness of those who fulfilled the conditions of
eligibility for promotion. We are satisfied that the aforesaid two
Government Orders squarely fall within the ambit of competence of the
appointing authority, to determine the minimum fitness standards postulated
under Rule 4 of the 2004 Rules.
12. In view of the above, we are satisfied that the impugned orders
passed by the High Court, whereby, the above two Government Orders were
quashed, deserve to be set aside. The two Government Orders dated
17.07.2004 and 08.11.2004 are hereby upheld. The instant appeals are
accordingly allowed. The impugned orders passed by the High Court are
therefore set aside.
...........................J.
(JAGDISH SINGH KHEHAR)
...........................J.
(ARUN MISHRA)
NEW DELHI;
OCTOBER 16, 2014.
IN THE SUPREME COURT OF INDIA
CIVIL APPELLATE JURISDICTION
CIVIL APPEAL No.7696 OF 2009
STATE OF UTTARANCHAL & ORS. ......APPELLANTS
VERSUS
C.S.R.K.S. MEDICAL HEALTH SERVICES, UTTARANCHAL .......RESPONDENT
WITH
CIVIL APPEAL No.972 OF 2010
CIVIL APPEAL No.974 OF 2010
CIVIL APPEAL No.975 OF 2010
CIVIL APPEAL No.973 OF 2010
J U D G M E N T
J.S.KHEHAR, J.
1. Heard learned counsel for the parties.
2. The applications for impleadment are dismissed as no ground for
impleadment is made out.
3. The State of Uttaranchal (now Uttarakhand) is in appeal
against a number of orders passed in a bunch of cases on 04.03.2006. The
issue which was the subject matter of consideration before the High Court
pertains to the criterion for promotion from Group `D' service, to the
lowest ranks of ministerial posts in Group `C' service. Even though,
various Rules were framed from time to time delineating the manner and
method for onward promotion from Group `D' service to the lowest ranks of
ministerial posts, yet we are satisfied, that insofar as the present
controversy is concerned, the same would be regulated by the Uttaranchal
Government Servants (Criterion for Recruitment by Promotion) Rules, 2004
(hereinafter referred to as the `2004 Rules'). The aforestated Rules were
notified on 15.06.2004. Rule 1 of the 2004 Rules reads as under:
“1. Short title Commencement and Extent-(1) These rules may be
called, the Uttaranchal Government Servants (Criterion for Recruitment by
Promotion) Rules, 2004.
(2) They shall come into force at once.
(3) They shall apply to a recruitment by promotion to a post or
service for which no consultation with the Public Service Commission is
required on the principles to be followed in making promotions under the
Uttaranchal Public Service Commission (Limitation of Functions)
Regulations, 2003, as amended from time to time.”
4. A perusal of Sub-rule (3) of Rule 1 explicitly mandates that
the 2004 Rules would regulate promotion to such posts with reference to
which consultation with the Public Service Commission is not required. It
is not a matter of dispute, that the promotional posts under consideration,
do not require consultation with the Public Service Commission, and as
such, the 2004 Rules would apply to the promotional avenues under
consideration.
5. Rule 2 of the 2004 Rules is also of material relevance. During
the course of hearing, learned counsel for the rival parties invited our
attention to different Rules framed under Article 309 of the Constitution
of India, promulgated in the years 1985, 1994 and 2004 (besides the 2004
Rules). It is, therefore, that Rule 2 of the 2004 Rules assumes
significance. The same is being extracted hereunder:
“2. Overriding effect- These rules shall have effect notwithstanding
anything to the contrary contained in any other service rules made by the
Governor under the proviso to Article 309 of the Constitution, or Orders,
for the time being in force.”
A perusal of Rule 2 of the 2004 Rules leaves no room for any doubt,
that the 2004 Rules have an overriding effect, notwithstanding anything to
the contrary contained, in any other Service Rules promulgated under
Article 309 of the Constitution of India. Suffice it to state, that all
the other Rules brought to our notice, had been notified prior to the
Notification of the 2004 Rules (notified on 15.06.2014). Thus viewed, it
is imperative for us to conclude, that the 2004 Rules have an overriding
effect on the other Rules, to which our attention was invited, during the
course of hearing.
6. Insofar as the present controversy is concerned, the same
shall have to be determined with reference to Rule 4 of the 2004 Rules.
The above Rule, was also the only Rule relied upon by the High Court, while
adjudicating upon the controversy. Rule 4 aforementioned is being
reproduced below:
“4. Criterion for Recruitment by Promotion- Recruitment by promotion to the
post of Head of Department, to a post just one rank below the Head of
Department and to a post in any service carrying the pay scale the maximum
of which is Rs.18,300 or above shall be made on the basis of merit, and to
the rest of the posts in all services to be filled by promotion, including
a post where promotion is made from a Non-gazetted post to a Gazetted post
or from one service to another service, shall be made on the basis of
seniority to the rejection of the unfit.”
7. There can be no doubt whatsoever that inter se merit is
inconsequential for promotions under Rule 4 of the 2004 Rules, insofar as
promotions from Group `D' service, to the lowest ranks of ministerial posts
in Group `C' service, are concerned. This is for the reason because the
promotions under reference are neither to the post of Head of Department
nor to a post just one rank below the post of Head of Department. It is
also not the case of either of the parties that the scale of the posts
concerned bring the same out of the purview of Rule 4 of the 2004 Rules.
The real mandate of the said Rule is, that for the posts under reference
seniority would regulate onward promotion, however, subject to the
condition of suitability. Inasmuch as, promotions are to be made on the
basis of seniority, subject to the “rejection of the unfit”. It is in the
aforesaid background, that we shall determine the validity of two
Government Orders. Firstly, the order dated 17.07.2004 was assailed before
the High Court, in Special Appeal No.10 of 2006 (arising out of Writ
Petition No.945 of 2004). The aforesaid Government Order dated 17.07.2004,
is the subject matter of consideration in Civil Appeal No.975 of 2010. The
aforesaid Government Order dated 17.07.2004 is being extracted hereunder:
“From
Joint Director(Education)
Kumaon Division
Nainital.
To
District Education Officer
Nainital/Almora/Pithoragarh/Udhamsingh Nagar/Bageshwar/Champawat
Letter No.Pra-3/4006-25/04-05 Dated 17.07.04
Subject: Regarding Promotion of Class-IV Employees (Group-`D’) on the Post
of Junior Clerks in Subordinate offices Ministerial Staff Class-III (Group-
`C’).
Sir,
With reference to above, and in pursuance of the instructions
issued by the Director of Education, Uttaranchal, Dehradun vide his letter
No.Pra-1/5302-03/04-05 dated 07.06.2004 and letter No.Pra-
1/Pri.Promotion/5496-97/04-05 dated 08.06.2004 and the Government Order
No./885/Karmik-02/03 dated 02.09.2003, the Schedule and programme for
taking necessary action for promotion of Class-IV employee of your division
on the post of Junior Clerk, is being forwarded herewith.
You are requested to get the forms duly filled up and submitted
by the eligible Class-IV employees of your district so that all the
eligible class-IV employees may submit relevant information as per the
format.
Only those Class-IV employees shall be eligible to apply who have minimum
qualification of high school or equivalent and have regularly worked for 5
years in the Education Department and is substantively appointed.
The time schedule for holding examination for promotion of Class-IV
employees on the post of Junior Clerk is being forwarded herewith to enable
you to take further necessary action accordingly.
Date of submission of certified copy
of the confidential report of the past
5 years submitted before the District
Education Officer. 08.08.2004
Date of submission of list (in
triplicate) compiled at District
Level of the forms received and the
Confidential Reports with details
After Verification in respect of
High School pass Candidates separately
In the Office of Joint Director,
Education, Kumaon Mandal Office. 14.08.2004
(C) Date and place to hold examination. 22.08.2004
Government Inter College, Nainital
(There will be one question paper in
Written Examination with two parts
1 – Hindi Essay, 2. General Knowledge.
Each question paper will consist of 15
Marks). Total 30 marks.
You are requested to inform to all concerned in your District in
all offices/colleges. The notice may be pasted on the notice board to
ensure that no eligible employee is deprived of the opportunity of the
promotion.
The information to be compiled at District Level should be
prepared in A5 paper in the Computer and a floppy may also be forwarded
with this information.
It may be ensured that while compiling information that serial
number of the compiled information and the compiled format are in same
seriatum.
Sd/-
Dan Singh Rautela
Joint Director(Education)
Kumaon Division, Nainital”
8. The second order, assailed before the High Court was dated
08.11.2004. The same came up for consideration before the High Court in
Civil Appeal No.9 of 2006 (arising out of Writ Petition No.78 of 2005). The
above Government Order dated 08.11.2004 is being extracted hereunder:
“From
Additional Director
Medical & Health
Kumaon Mandal, Nainital.
To
The Chief Medical Officer/
Chief Medical Superintendent
Almora, Pithoragarh, Udhamsingh Nagar/
Nainital/Balaswar/Champawat.
No.E-4/2004/1770-22 dated 8.11.2004.
Sub: To provide opportunity to appear in typing test to those candidates
who did not appear earlier in the typing test in the written examination
conducted for promotion from class IV to the post of junior clerk.
Sir,
As per direction of Director General, Medical Health and Family Welfare,
Uttaranchal, Dehradun vide his letter no.IV category/37/2002/26233 dated
25.10.2004, those class IV employees who appeared in written examination of
captioned mentioned promotion and who could not appear in the typing test
conducted earlier, are being given another opportunity to appear in typing
test.
Therefore, a list of such candidates is enclosed herewith. You are
requested to inform intimation to this effect to all those employees
mentioned in the said list of your district wherever they are posted that a
typing test is being conducted on 4.12.2004 at 11.00 a.m. in the office of
Additional Director, Medical Health and Family Welfare, Kumaon Division,
Nainital. The concerned candidate should appear at 10.00 a.m. in the
concerned division alongwith an identity card or a certificate issued by
the Medical Incharge.
A notice to this effect may be published in Dainik Jagran and Amar Ujala
also so that no candidate is deprived of such opportunity.
Sd/-
H B Bhatt
Additional Director”
9. The High Court while disposing of the bunch of cases on
04.03.2006, set aside both the Government Orders dated 17.07.2004 and
08.11.2004, by holding that they violated the mandate contained in Rule 4
of the 2004 Rules. The question to be determined by us is, whether the
mandate of Rule 4 of the 2004 Rules, was indeed breached by the aforestated
two Government Orders.
10. In its determination, the High Court was of the view, that Rule
4 of the 2004 Rules postulates only one criterion for promotion, namely,
seniority. And that, seniority was the only relevant factor for determining
onward promotion from Group `D’ service to the lowest ministerial posts of
Group `C’ service. Keeping in view the facts and circumstances of the
present controversy, we are of the view that the High Court erred in
recording the aforesaid determination. Whilst there can be no doubt that
Rule 4 postulates seniority as the basis for onward promotion, but the Rule
also provides, that promotions would be made subject to the “rejection of
the unfit”. If the Government Orders dated 17.07.2004 and 08.11.2004 were
the basis of determining the fitness of concerned employees for onward
promotion and for adopting measures for “rejection of the unfit” then the
two Government Orders would squarely fall within the purview of Rule 4 of
the 2004 Rules. Otherwise, they would be in conflict therewith.
11. We have extracted hereinabove both the Government Orders. We
are satisfied that it was the endeavour of the Government to determine
fitness of Group `D’ employees, for onward promotion to the lowest rank of
ministerial posts in Group `C’ service. We say so because, it is apparent
to us, that Group `D’ posts comprise of posts in the nature of Peons,
Messengers, Chaukidars, Malis, Farrashes, Sweepers, Watermen, Bhistis,
Tindals, Thelamen, Recordfilters, Peon-Jamadars, Daftris, Book-binders,
Cyclostyle Operators, Farrash-Jamadars, Sweeper-Jamadars and Head Malis.
The nature of duties of the posts referred to hereinabove, are too well-
known. Merely because an employee while holding a Group `D’ post has been
discharging the duties, of the nature referred to above, it cannot be
presumed that he/she is suitable for onward promotion to a ministerial
post. It is, therefore, that while determining the issue of onward
promotion to ministerial posts, the State Government issued inter alia the
above two Government Orders extracted hereinabove. Thereby, it would be
possible to determine the fitness of those who fulfilled the conditions of
eligibility for promotion. We are satisfied that the aforesaid two
Government Orders squarely fall within the ambit of competence of the
appointing authority, to determine the minimum fitness standards postulated
under Rule 4 of the 2004 Rules.
12. In view of the above, we are satisfied that the impugned orders
passed by the High Court, whereby, the above two Government Orders were
quashed, deserve to be set aside. The two Government Orders dated
17.07.2004 and 08.11.2004 are hereby upheld. The instant appeals are
accordingly allowed. The impugned orders passed by the High Court are
therefore set aside.
...........................J.
(JAGDISH SINGH KHEHAR)
...........................J.
(ARUN MISHRA)
NEW DELHI;
OCTOBER 16, 2014.
