Constitutional Law – Public Safety – Stray Dog Menace – Scope of Animal Birth Control Rules, 2023 – Institutional Premises – Interpretation of “street dogs”, “same place” and “locality” – Article 21 – Exercise of powers under Article 142 – Harmonious construction of PCA Act and ABC Rules.

apex court held that 

 

Constitutional Law – Public Safety – Stray Dog Menace – Scope of Animal Birth Control Rules, 2023 – Institutional Premises – Interpretation of “street dogs”, “same place” and “locality” – Article 21 – Exercise of powers under Article 142 – Harmonious construction of PCA Act and ABC Rules.

The Supreme Court considered multiple interlocutory applications seeking modification, recall, clarification and stay of earlier directions dated 07.11.2025 issued in suo motu proceedings concerning stray dog menace in institutional areas such as schools, hospitals, sports complexes, bus stands and railway stations. The principal challenge was to directions prohibiting re-release of stray dogs into institutional premises after sterilisation and vaccination. Applicants contended that the directions violated Rule 11(19) of the Animal Birth Control Rules, 2023 mandating release of dogs at same place/locality from where captured. The Court examined the scope of the ABC Rules, 2023, the Prevention of Cruelty to Animals Act, 1960 and powers under Article 142 of the Constitution.

Held:

A. “Street dogs” or “community dogs” under Rule 7(2) do not include stray dogs inhabiting sensitive institutional premises.

Rule 7(2) of the ABC Rules, 2023 is merely classificatory and does not confer any indefeasible right upon stray dogs to continue occupying every space including hospitals, schools, colleges, airports and sports complexes. Paras 41-43.

B. Rule 11(19) requiring release at “same place or locality” must be read harmoniously with Section 2(i) of PCA Act.

The expression “same place or locality” in Rule 11(19) is confined to public streets and analogous open-access spaces contemplated under Section 2(i) of the Prevention of Cruelty to Animals Act, 1960, and cannot extend to restricted-access institutional premises. Paras 44-45.

C. Institutional premises are entitled to be maintained free from stray animals in larger public interest.

Hospitals, educational institutions, transport hubs and sports complexes are sensitive public utility spaces requiring controlled, secure and hygienic environments. Presence of stray dogs therein creates serious risks to safety, health and institutional functioning. Paras 43, 46-47.

D. Directions prohibiting re-release of stray dogs into institutional premises are consistent with statutory framework.

The Court held that exclusion of institutional premises from the re-release mechanism under Rule 11(19) is in consonance with purposive and harmonious interpretation of the ABC Rules, 2023 and PCA Act, 1960. Paras 48-49.

E. Article 142 empowers Supreme Court to issue directions for complete justice.

The Court reiterated that powers under Article 142 are plenary and cannot be curtailed merely by ordinary statutory provisions, though such powers must remain consistent with constitutional principles and public policy. Paras 50-51.

F. Article 21 includes right to safety and secure public spaces.

The Court emphasized that unchecked stray dog presence and dog-bite incidents directly affect right to life, safety, mobility and public health guaranteed under Article 21. Paras 1, 13, 24, 31-32.

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ANALYSIS OF LAW

1. Harmonious Interpretation of ABC Rules, 2023 and PCA Act, 1960

The core issue before the Court was whether Rule 11(19) of the ABC Rules mandated compulsory re-release of stray dogs into institutional areas.

The Court rejected a literal and expansive interpretation.

The Court held that:

• Rule 7(2) is merely classificatory.
• It does not create vested rights in favour of stray dogs.
• “Same place or locality” cannot be interpreted independent of parent statute.

The Court harmonised:

• Rule 7(2),
• Rule 11(19),
• Section 2(i) of PCA Act.

The definition of “street” under Section 2(i) became the interpretative anchor.

Thus:

• “locality” means public-access areas,
• not restricted institutional premises.

Legal significance:

The Court preferred:

• purposive interpretation,
• constitutional compatibility,
• public safety oriented construction.

Paras 40-45.

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2. Institutional Premises and Public Safety Doctrine

The Court recognised:

• hospitals,
• schools,
• colleges,
• railway stations,
• bus depots,
• airports,
• sports complexes

as “sensitive institutional environments”.

The Court held these spaces must remain:

• hygienic,
• obstruction free,
• secure,
• risk free.

The Court observed that:

• children,
• patients,
• elderly persons,
• vulnerable persons

are disproportionately exposed to danger from stray dogs.

Important principle:

Animal welfare cannot override institutional safety obligations under Article 21.

Paras 43, 46-47.

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3. Scope of Article 21

The judgment significantly expands public safety jurisprudence under Article 21.

The Court treated:

• dog-bite incidents,
• stray dog intrusions,
• unsafe institutional premises

as constitutional violations affecting:

• life,
• safety,
• dignity,
• mobility,
• access to public spaces.

The Court recognised positive obligations of State authorities to:

• secure institutional areas,
• prevent preventable injury,
• ensure safe civic infrastructure.

Constitutional principle evolved:

Public safety from preventable animal hazards forms part of Article 21.

Paras 1-4, 23-26, 31-32.

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4. Article 142 and Complete Justice

The applicants argued:

• Article 142 cannot override statutory provisions.

The Court discussed:

• Union Carbide Corporation v. Union of India,
• Prem Chand Garg v. Excise Commissioner.

The Court reiterated:

• Article 142 is a constitutional power,
• distinct from ordinary statutory powers,
• aimed at doing complete justice.

However, the Court avoided direct statutory conflict by holding:

• its directions were actually consistent with the statutory scheme when properly interpreted.

Thus:

• the Court harmonised Article 142 with the ABC Rules rather than overriding them.

Paras 50-51.

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5. Administrative Accountability

The Court imposed:

• mandatory obligations upon municipal bodies,
• district authorities,
• institutional heads,
• transport authorities.

The judgment emphasizes:

• continuous inspection,
• fencing,
• nodal officers,
• removal and relocation,
• anti-rabies preparedness,
• SOP formulation,
• inter-departmental coordination.

Jurisprudential significance:

The judgment converts stray animal management from:

• discretionary governance
  to
• enforceable constitutional obligation.

Paras 24-30.

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ANALYSIS OF FACTS

1. Background of Suo Motu Proceedings

The proceedings originated from:

• escalating dog-bite incidents,
• media reports,
• stray dog intrusions in public institutions.

The Court took judicial notice of:

• repeated attacks on school children,
• patients in hospitals,
• passengers at transport hubs,
• athletes in sports complexes.

Paras 1-2, 12-13.

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2. Earlier Directions Dated 07.11.2025

The earlier order mandated:

• removal of stray dogs from institutional premises,
• sterilisation and vaccination,
• relocation to shelters,
• prohibition on re-release to same premises.

Para 25(E).

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3. Challenge by Animal Welfare Organisations

Applicants argued:

• directions violated ABC Rules,
• re-release was statutorily mandatory,
• relocation would create “vacuum effect”,
• infrastructure for shelters was insufficient,
• large-scale relocation was economically unviable.

Paras 10-28.

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4. Counter-position Supporting Directions

Supporting applicants argued:

• ABC framework failed to control stray population,
• India witnessed exponential growth of stray dogs,
• dog-bite incidents and rabies deaths were alarming,
• unrestricted stray presence violated Article 21 rights of citizens.

Paras 29-37.

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RATIO DECIDENDI

The expression “same place or locality” under Rule 11(19) of the Animal Birth Control Rules, 2023 does not include sensitive institutional or restricted-access premises such as hospitals, schools, colleges, sports complexes, bus depots and railway stations, and therefore stray dogs captured from such premises need not be re-released into those areas.

Rule 7(2) of the ABC Rules, 2023 is merely a classificatory provision and does not confer an indefeasible or perpetual right upon stray dogs to inhabit every location where they are found.

The State and its instrumentalities bear a constitutional obligation under Article 21 to secure public and institutional spaces from preventable hazards arising from stray animal menace.

The Supreme Court, in exercise of powers under Article 142, may issue comprehensive directions to balance public safety and animal welfare, provided such directions remain consistent with constitutional principles and purposive interpretation of statutory framework.

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Final Conclusion

The Court upheld and reaffirmed the earlier directions dated 07.11.2025 requiring:

• removal of stray dogs from institutional premises,
• non-release into same institutional locations,
• relocation in accordance with humane statutory procedures.

The Court held that the directions are:

• constitutionally valid,
• statutorily harmonious,
• necessary for protection of public safety under Article 21.

ADVOCATEMMMOHAN: Service Law – Appointment of Principal in Non-Gove...

ADVOCATEMMMOHAN: Service Law – Appointment of Principal in Non-Gove...: advocatemmmohan apex court held that  Service Law – Appointment of Principal in Non-Government Aided Colleges – Wait-listed Candidate – Chan...

apex court held that 

Service Law – Appointment of Principal in Non-Government Aided Colleges – Wait-listed Candidate – Change of Place of Posting – Repeal and Savings – Scope of Section 13(4) of the Uttar Pradesh Higher Education Services Commission Act, 1980 – Interpretation of “otherwise” – Validity of acts after repeal of Old Act.

The appellant, a wait-listed candidate for the post of Principal under Advertisement No.49 of 2019, was initially recommended on 03.08.2022 for appointment as Principal in Shri Bajrang P.G. College, Ballia. He did not join the post due to personal/family circumstances and later sought change of posting to Meerut College after vacancy arose there. The Director initially clarified on 17.08.2023 that there existed no provision under the Old Act for change of place of posting after recommendation. Subsequently, after the Uttar Pradesh Education Service Selection Commission Act, 2023 came into force repealing the Old Act, the authorities issued fresh recommendation/orders dated 13.12.2023, 12.01.2024 and 15.01.2024 posting the appellant at Meerut College. The Officiating Principal challenged the same. High Court quashed the orders. Supreme Court affirmed.

Held:

A. Interpretation of Section 13(4) of Old Act – “Otherwise” cannot be interpreted broadly.

The expression “otherwise” occurring in Section 13(4) must be read ejusdem generis with “death” and “resignation” and applies only to unforeseen vacancies occurring during validity of select list. It cannot be used to permit a wait-listed candidate, already recommended elsewhere, to seek fresh posting at another institution merely because he chose not to join earlier posting. Paras 20-21.

B. Once recommendation issued under Section 13(3), candidate cannot seek substitution of institution.

After recommendation dated 03.08.2022, appellant neither joined the post nor pursued issuance of appointment order from Ballia College. Instead, he waited for preferred vacancies and sought transfer/change of placement. Such conduct frustrates statutory scheme under Sections 13(3) and 14 of the Old Act. Paras 18-20.

C. Repeal of Old Act by New Act extinguished further exercise of powers under repealed statute.

After commencement of the Uttar Pradesh Education Service Selection Commission Act, 2023 on 21.08.2023, the authorities could not revive or operate old select list for fresh recommendation/change of posting. Any further appointment process had to conform to Sections 10 and 11 of the New Act. Paras 23-24.

D. Saving clause preserves only acts already done, not fresh actions under repealed law.

Section 31(2) of the New Act read with Section 6 of the U.P. General Clauses Act protects only acts already validly done prior to repeal. The only protected act was recommendation dated 03.08.2022. Fresh recommendation/orders issued after repeal were unsustainable. Paras 22-24.

E. Illegal administrative action can be challenged even by Officiating Principal.

Where action of authorities is ex facie illegal and contrary to statutory provisions, objection regarding locus standi loses significance. Paras 27-28.

F. State authorities expected to assist Court fairly.

State officials are duty bound to place correct legal and factual position before Court and cannot support unlawful administrative action contrary to statute. Para 26.

Ratio Decidendi

A wait-listed candidate who has already been recommended for appointment under Section 13(3) of the Uttar Pradesh Higher Education Services Commission Act, 1980 cannot invoke Section 13(4) to seek fresh recommendation/change of posting merely because he voluntarily failed to join the originally allotted institution. Further, after repeal of the Old Act by the Uttar Pradesh Education Service Selection Commission Act, 2023, authorities cannot exercise powers traceable to the repealed statute except to the limited extent protected by the saving clause in respect of acts already completed before repeal.

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ANALYSIS OF LAW

1. Scheme of Sections 12, 13 and 14 of the Old Act

The Supreme Court undertook a structural interpretation of the statutory framework governing appointments in aided colleges. The Court noted:

• Vacancies are identified and notified under Section 12.
• Commission prepares select/wait list under Section 13(1).
• Director intimates names for appointment under Section 13(3).
• Management issues appointment order under Section 14.
• Fresh recommendation can arise only in contingencies contemplated under Section 13(4).

The Court emphasized that the legislative scheme does not permit open-ended mobility or institutional choice by wait-listed candidates after recommendation.

Key Legal Principle:

Recommendation under Section 13(3) culminates the selection process for that candidate vis-à-vis that institution.

Paras 13-15.

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2. Interpretation of the word “otherwise”

The central legal issue concerned the meaning of “otherwise” in Section 13(4).

The appellant attempted to argue that since vacancy arose in Meerut College during validity of select list, he could be adjusted there.

The Court rejected this construction by applying:

• Doctrine of ejusdem generis
• Legislative intent analysis
• Earlier precedent in Kamlesh Kumar Sharma v. Yogesh Kumar Gupta.

The Court held that:

“otherwise” refers only to unforeseen vacancies akin to death, resignation, invalidation, long leave, or non-joining.

It does not include:

• voluntary refusal to join,
• preference-based relocation,
• change of posting on compassionate or personal grounds.

Importance of the ruling:

The Court preserved integrity of:

• advertised vacancies,
• merit-based institutional allocation,
• equality in public employment under Articles 14 and 16.

Paras 20-21.

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3. Effect of Repeal and Savings Clause

The Court gave detailed interpretation to:

• Section 31 of the New Act,
• Section 6 of the U.P. General Clauses Act.

Court’s reasoning:

The repeal clause did not revive or continue the old panel indefinitely.

Only completed acts survive repeal.

The only surviving act was:

• recommendation dated 03.08.2022.

What was not protected:

• fresh posting orders,
• altered recommendations,
• revival of old list after repeal.

Thus:

• recommendation after 21.08.2023 lacked statutory authority.

Important principle:

A saving clause preserves completed legal acts, not future exercises of repealed power.

Paras 22-24.

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4. Administrative Law Dimension

The Court strongly criticized the conduct of State authorities.

The authorities:

• initially stated no legal provision existed for change of posting,
• later reversed position,
• attempted to support appellant contrary to statute.

The Court observed that State litigation conduct must:

• assist Court fairly,
• reflect statutory fidelity,
• avoid partisan illegality.

This part of judgment reinforces:

• doctrine of public trust,
• fairness in State litigation,
• constitutional obligation of State officers.

Para 26.

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ANALYSIS OF FACTS

Chronological factual findings relied upon by Supreme Court

(i) Selection and wait list

The appellant was merely a wait-listed candidate at Sl.No.59.

Para 4.

(ii) First recommendation

Director validly recommended appellant to Ballia College on 03.08.2022.

Para 5.

(iii) Appellant voluntarily did not join

The Court treated this fact as decisive.

The appellant himself admitted:

“Due to family circumstances, I have not taken charge…”

The Court repeatedly stressed:

• there was no denial of appointment by management,
• appellant himself remained inactive.

Paras 18-19.

(iv) Representation seeking preferred vacancy

After noticing vacancies elsewhere, appellant sought posting in alternative colleges including Meerut College.

The Court treated this as an attempt to bypass statutory allocation process.

Para 19-20.

(v) New Act came into force

Before fresh recommendation was issued, Old Act already stood repealed.

Hence all later orders lacked jurisdiction.

Paras 22-24.

RATIO DECIDENDI

Primary Ratio

A candidate already recommended for appointment under Section 13(3) of the Uttar Pradesh Higher Education Services Commission Act, 1980 cannot subsequently seek fresh recommendation or change of institution under Section 13(4) merely because he voluntarily failed to join the originally allotted post.

After repeal of the Uttar Pradesh Higher Education Services Commission Act, 1980 by the Uttar Pradesh Education Service Selection Commission Act, 2023, no fresh exercise of powers under the repealed Act can be undertaken except to the extent expressly saved by Section 31 of the New Act.

The expression “otherwise” in Section 13(4) must receive restricted ejusdem generis interpretation and applies only to unforeseen vacancies analogous to death, resignation, invalidation, or non-joining, and not to administrative rearrangement or preference-based reposting.

Final Outcome

Appeal dismissed. Orders of learned Single Judge and Division Bench upheld. Parties directed to bear own costs. Paras 25 & 28

UNLAWFUL ACTIVITIES (PREVENTION) ACT, 1967 – S.43-D(5) – Bail – Long incarceration – Constitutional courts – Scope of Article 21 – Whether statutory embargo under UAPA overrides fundamental right to speedy trial – Binding nature of larger Bench decisions – Smaller Benches diluting constitutional ratio impermissible – NDPS ACT, 1985 – S.37 – Stringent bail conditions – Effect.

APEX COURT HELD THAT 

UNLAWFUL ACTIVITIES (PREVENTION) ACT, 1967 – S.43-D(5) – Bail – Long incarceration – Constitutional courts – Scope of Article 21 – Whether statutory embargo under UAPA overrides fundamental right to speedy trial – Binding nature of larger Bench decisions – Smaller Benches diluting constitutional ratio impermissible – NDPS ACT, 1985 – S.37 – Stringent bail conditions – Effect.

Appellant charged under Sections 17, 38 and 40 UAPA read with Sections 8, 21, 25 and 29 NDPS Act and Section 120B IPC alleging narco-terror funding and links with proscribed terrorist organisations – Appellant in custody since 11.06.2020 – Chargesheet filed in 2020 – More than 350 prosecution witnesses remained to be examined – Trial progressing slowly – Bail rejected by Special NIA Court and High Court on ground of seriousness of accusations and statutory restrictions under Section 43-D(5) UAPA and Section 37 NDPS Act – Sustainability.

Held : Right to personal liberty and speedy trial guaranteed under Article 21 Constitution remains overarching, sacrosanct and enforceable even in prosecutions under special penal statutes such as UAPA and NDPS Act. Statutory embargoes under Section 43-D(5) UAPA and Section 37 NDPS Act cannot eclipse constitutional jurisdiction of courts to grant bail where prolonged incarceration and denial of speedy trial amount to violation of Article 21.

Three-Judge Bench decision in Union of India v. K.A. Najeeb authoritatively declares constitutional limitation on operation of statutory restrictions against bail under UAPA. Rigours of Section 43-D(5) “melt down” where:
(i) trial is unlikely to conclude within reasonable time;
(ii) accused has undergone substantial period of incarceration;
and
(iii) continued detention converts undertrial custody into punitive imprisonment.

Smaller Benches cannot dilute, circumvent or hollow out ratio of larger Bench decisions without express disagreement or reference to larger Bench. Judicial discipline mandates that a Bench of lesser strength must either follow binding precedent or refer matter to larger Bench. Any attempt to read down binding constitutional principles indirectly is impermissible.

Seriousness of allegations or gravity of offence cannot indefinitely justify denial of bail where prosecution fails to ensure expeditious trial. More stringent the penal statute, greater becomes constitutional obligation of State and courts to ensure speedy adjudication.

Section 43-D(5) UAPA only mandates prima facie assessment based on case diary or police report and does not authorise courts to mechanically deny bail despite prolonged incarceration and absence of likelihood of early conclusion of trial.

Constitutional courts must harmonise statutory restrictions with Article 21 and lean in favour of constitutionalism and rule of law. Preventive incarceration of undertrials for prolonged periods without realistic prospect of conclusion of trial violates constitutional guarantees irrespective of nature or gravity of accusation.

Court criticised tendency of subsequent smaller Bench decisions to distinguish or dilute binding principles laid down in Union of India v. K.A. Najeeb by overemphasising seriousness of allegations or by treating long incarceration as insignificant.

Presumption of innocence continues to operate till conviction and undertrial detention cannot be permitted to become substitute for punishment.

Shaheen Welfare Association v. Union of India; Union of India v. K.A. Najeeb; Javed Gulam Nabi Shaikh v. State of Maharashtra; Sheikh Javed Iqbal v. State of Uttar Pradesh, followed.
Gurwinder Singh v. State of Punjab, explained and doubted insofar as it diluted binding ratio of larger Bench in Union of India v. K.A. Najeeb.

(Paras 19 to 27)

ANALYSIS OF FACTS AND LAW

Supreme Court undertook extensive constitutional examination of:

• interaction between Article 21 and Section 43-D(5) UAPA,
• prolonged undertrial incarceration,
• and doctrinal discipline relating to precedential hierarchy.

Factual background revealed that appellant had remained incarcerated since June 2020 in prosecution involving allegations of:

• narco-terror funding,
• heroin smuggling,
• terror financing,
• and alleged links with LeT/HM operatives.

Despite filing of chargesheet in 2020:

• trial progressed extremely slowly,
• more than 350 prosecution witnesses still remained to be examined,
• and completion of trial in near future appeared impossible.

Appellant relied heavily upon constitutional jurisprudence flowing from:
Union of India v. K.A. Najeeb,
which recognised that prolonged incarceration and denial of speedy trial dilute statutory embargo against bail under UAPA.

Supreme Court then undertook detailed doctrinal survey of earlier precedents including:

• Shaheen Welfare Association v. Union of India,
• Lt. Col. Prasad Shrikant Purohit v. State of Maharashtra,
• Union of India v. K.A. Najeeb,
• Javed Gulam Nabi Shaikh v. State of Maharashtra,
• and Sheikh Javed Iqbal v. State of Uttar Pradesh.

Court repeatedly emphasised that:
speedy trial forms inseparable component of Article 21.

Most significant doctrinal contribution of judgment lies in its criticism of later smaller Bench decisions attempting to dilute constitutional ratio of larger Bench judgments.

Court specifically analysed Gurwinder Singh v. State of Punjab and observed that:

• smaller Bench cannot narrow or indirectly dilute ratio of larger Bench,
• judicial discipline requires obedience to precedential hierarchy,
• and if disagreement exists, only permissible course is reference to larger Bench.

Supreme Court strongly reaffirmed constitutional supremacy over statutory bail restrictions and reiterated that:
Section 43-D(5) UAPA cannot become mechanism for indefinite incarceration without trial.

Court clarified that:

• seriousness of accusation alone cannot justify endless denial of liberty,
• especially where prosecution itself is unable to complete trial within reasonable time.

Another important aspect noted by Court was:
constitutional courts must not mechanically rely upon “gravity of offence” while ignoring prolonged deprivation of liberty.

Court stressed:
more rigorous the statute,
greater becomes obligation upon State to ensure expeditious adjudication.

Judgment therefore substantially reinforces constitutional primacy of:

• liberty,
• speedy trial,
• and proportionality in undertrial detention jurisprudence under special statutes like UAPA and NDPS Act.

RATIO

Statutory restrictions on bail under Section 43-D(5) UAPA and Section 37 NDPS Act do not override constitutional guarantees under Article 21. Where undertrial incarceration becomes prolonged and trial is unlikely to conclude within reasonable time, constitutional courts are empowered and obligated to grant bail notwithstanding statutory embargoes. Rigours of special statutes “melt down” when continued detention violates right to speedy trial. Smaller Benches cannot dilute or circumvent binding constitutional principles laid down by larger Benches without reference to larger Bench. 

CODE OF CIVIL PROCEDURE, 1908 – S.2(2) – Or.XX Rr.12 & 18 – Preliminary decree and final decree – Partition suit – Whether preliminary decree itself can operate as final decree – Executability – Partition by metes and bounds impossible – Sale of property and distribution of proceeds – Scope.

APEX COURT HELD THAT 

CODE OF CIVIL PROCEDURE, 1908 – S.2(2) – Or.XX Rr.12 & 18 – Preliminary decree and final decree – Partition suit – Whether preliminary decree itself can operate as final decree – Executability – Partition by metes and bounds impossible – Sale of property and distribution of proceeds – Scope.

Appellant/wife instituted suit for partition and separate possession of flat jointly purchased with husband – Trial Court by decree dated 13.04.2012 declared parties entitled to half share each, awarded mesne profits to appellant, appointed Advocate Commissioner for division by metes and bounds and further directed that if partition was not feasible property be sold and proceeds divided between parties – Appellant initially filed execution petition which was dismissed on ground that decree was preliminary – Thereafter application under Order XX Rule 18 CPC filed – Advocate Commissioner reported that flat could not be partitioned by metes and bounds – Executing Court directed bidding/auction between parties – High Court repeatedly interfered holding that decree was merely preliminary and incapable of execution unless separate final decree was drawn – Sustainability.

Held : Distinction between preliminary decree and final decree depends not upon nomenclature assigned to decree but upon substance, contents and extent of adjudication embodied therein. Though ordinarily preliminary decree merely declares rights and liabilities leaving further adjudication to be worked out subsequently, in appropriate cases decree may simultaneously possess attributes both of preliminary and final decree.

In partition suits under Order XX Rule 18 CPC, where Court not only declares shares of parties but also provides complete mechanism for working out rights in event partition by metes and bounds becomes impossible, decree can attain executable finality to that extent.

Decree dated 13.04.2012 conclusively determined:
(i) entitlement of parties to half share each;
(ii) appellant’s right to possession;
(iii) entitlement to mesne profits;
(iv) appointment of Advocate Commissioner for division by metes and bounds;
and
(v) eventual sale of subject property with apportionment of sale proceeds if physical partition proved impossible.

Once Advocate Commissioner reported that subject flat could not be partitioned by metes and bounds, nothing substantive survived for fresh adjudication by way of separate final decree proceedings. Executing Court rightly proceeded towards auction and distribution of sale proceeds in terms of decree itself.

High Court committed serious error in proceeding merely by nomenclature of decree and in mechanically treating decree as incapable of execution. Executability must be determined from operative substance of decree and not merely from label “preliminary decree”.

Where decree itself contains executable directions and Court has already determined rights and mode of working out partition upon impossibility of physical division, insistence on separate final decree proceedings becomes empty formality and purely academic exercise defeating ends of justice.

Court reiterated that in certain circumstances decree may be partly preliminary and partly final. Further, suit for partition continues till final working out of rights and Court itself ought to proceed suo motu under Order XX Rule 18 CPC without compelling parties to institute separate final decree proceedings.

Termination of execution proceedings by High Court amounted to illegal exercise of jurisdiction. Execution proceedings restored with direction for auction of flat and apportionment of proceeds together with mesne profits.

Shankar Balwant Lokhande v. Chandrakant Shankar Lokhande; Bimal Kumar v. Shakuntala Debi; Kattukandi Edathil Krishnan v. Kattukandi Edathil Valsan, referred to.

(Paras 11 to 17)

ANALYSIS OF FACTS AND LAW

Supreme Court examined central controversy:
whether decree dated 13.04.2012 in partition suit was merely preliminary decree incapable of execution or whether it substantially operated as executable final decree as well.

Factual matrix revealed prolonged procedural complications after decree-holder attempted execution of decree. Though decree had:

• declared half share of parties,
• granted mesne profits,
• appointed Advocate Commissioner,
• and expressly contemplated sale if partition by metes and bounds became impossible,
  High Court repeatedly held that execution could not proceed without separate final decree.

Supreme Court characterised litigation history as “Comedy of Errors” and emphasised that courts below focused excessively on nomenclature rather than legal effect of decree.

Court undertook detailed analysis of:

• Section 2(2) CPC,
• Order XX Rule 12 CPC,
• and Order XX Rule 18 CPC.

After referring to Shankar Balwant Lokhande v. Chandrakant Shankar Lokhande and Bimal Kumar v. Shakuntala Debi, Supreme Court reiterated:

• preliminary decree declares rights,
• final decree completely works out rights,
• but decree may simultaneously possess both characteristics.

Most important aspect of judgment lies in Court’s focus on operative substance of decree.

Court found that Trial Court had already anticipated practical impossibility of physical partition of flat and therefore incorporated self-contained mechanism:

• if partition by metes and bounds failed,
• property should be sold,
• and proceeds divided.

Advocate Commissioner subsequently confirmed impossibility of partition. Thus, according to Supreme Court:
nothing further survived for substantive adjudication.

Court strongly criticised High Court for:

• relying merely on nomenclature,
• insisting on another formal decree,
• and ignoring operative clauses already providing complete executable mechanism.

Supreme Court further clarified that:

• insistence upon separate final decree proceedings in such circumstances would be purely academic,
• contrary to ends of justice,
• and procedurally unnecessary.

Court also relied on Kattukandi Edathil Krishnan v. Kattukandi Edathil Valsan to reiterate that partition suits continue till rights are fully worked out and courts themselves should proceed suo motu under Order XX Rule 18 CPC without compelling separate proceedings.

Accordingly:

• execution proceedings were restored,
• auction process revived,
• parties permitted to bid,
• and Trial Court directed to complete proceedings within two months.

RATIO

Executability of decree depends upon its substantive operative directions and not merely nomenclature assigned to it. In a partition suit, where decree not only declares shares of parties but also prescribes complete mechanism for sale and distribution of proceeds in event partition by metes and bounds becomes impossible, decree may operate both as preliminary and final decree. Once Advocate Commissioner reports impossibility of physical partition and decree itself provides for auction and apportionment, insistence upon separate final decree proceedings is unnecessary and execution can validly proceed on basis of such decree itself. 

SERVICE LAW – Promotion – Right to promotion – Executive instructions vis-à-vis statutory rules – Restructuring of cadre – Selection post – Whether vacancies arising prior to new rules must be filled under old executive instructions – Overruling effect of State of Himachal Pradesh v. Raj Kumar on Y.V. Rangaiah v. J. Sreenivasa Rao – Scope.

CONSTITUTION OF INDIA – Arts. 309, 162 & 226 – SERVICE LAW – Promotion – Right to promotion – Executive instructions vis-à-vis statutory rules – Restructuring of cadre – Selection post – Whether vacancies arising prior to new rules must be filled under old executive instructions – Overruling effect of State of Himachal Pradesh v. Raj Kumar on Y.V. Rangaiah v. J. Sreenivasa Rao – Scope.

Respondents/Assistant Section Officers sought promotion to post of Assistant Regional Transport Officer (ARTO) under executive instructions dated 17.11.1981 which governed selection to post pending framing of cadre rules – Though vacancies existed and recommendations for convening DPC were made before framing of Odisha Transport Service (Method of Recruitment and Conditions of Service) Rules, 2021, Government declined to convene DPC and subsequently decided to fill posts under 2021 Rules through competitive examination – Single Judge directed convening of DPC under old executive instructions and Division Bench affirmed – Sustainability.

Held : No employee possesses vested right to promotion merely because vacancy existed prior to coming into force of new rules. At best, employee has limited right of consideration in accordance with rules prevailing on date when consideration actually takes place.

Law laid down in State of Himachal Pradesh v. Raj Kumar conclusively overrules proposition in Y.V. Rangaiah v. J. Sreenivasa Rao that vacancies arising prior to amended rules must necessarily be filled under old rules. Government is entitled to take conscious policy decision not to fill vacancies under repealed or superseded regime, particularly upon restructuring of cadre and framing of statutory recruitment rules.

Executive instructions dated 17.11.1981 were purely temporary and operative only pending finalization of cadre rules. Their very language disclosed pro tem arrangement till framing of recruitment rules. Once Odisha Transport Service Rules, 2021 were framed under proviso to Article 309 Constitution, executive instructions stood superseded.

Mere recommendation by Transport Commissioner for convening DPC or existence of vacancies did not create enforceable right in favour of respondents. Neither DPC had been constituted nor any appointment process completed before enforcement of 2021 Rules. Hence, there was no accrued or saved right capable of protection under saving clause contained in preamble to 2021 Rules.

Expression “except as respects things done or omitted to be done before such supersession” in preamble to 2021 Rules saves completed acts validly performed under previous regime and not mere proposals or recommendations for holding DPC. Request made by Transport Commissioner to convene DPC cannot be construed as completed act creating vested entitlement.

Rules framed under proviso to Article 309 Constitution prevail over executive instructions issued under Article 162. Once statutory rules occupy field, executive instructions inconsistent therewith automatically lose operative force.

Post of Assistant Regional Transport Officer was not promotional post but selection post. No employee can claim automatic promotion to selection post on basis of seniority or availability of vacancy. Method and mode of selection to such post remain matters of policy within exclusive domain of Government unless policy is shown to be arbitrary or unconstitutional.

Division Bench committed serious error in mechanically dismissing intra-court appeals without properly considering binding precedent in State of Himachal Pradesh v. Raj Kumar cited by State. Judicial duty requires meaningful engagement with precedents having direct bearing on controversy and mere cursory reference without analysis amounts to failure to assign reasons.

State of Himachal Pradesh v. Raj Kumar; Union of India v. Somasundaram Viswanath; Sant Ram Sharma v. State of Rajasthan; Haryana SEB v. Gulshan Lal, relied on.
Y.V. Rangaiah v. J. Sreenivasa Rao, held impliedly overruled in view of State of Himachal Pradesh v. Raj Kumar.

(Paras 8 to 29)

ANALYSIS OF FACTS AND LAW

Supreme Court undertook detailed examination of:

• vested rights in service jurisprudence,
• interplay between executive instructions and statutory rules,
• restructuring of service cadres,
• and applicability of principles in Y.V. Rangaiah v. J. Sreenivasa Rao after authoritative pronouncement in State of Himachal Pradesh v. Raj Kumar.

Respondents were originally Junior Assistants promoted as Senior Assistants and later redesignated as Assistant Section Officers pursuant to cadre restructuring. Their claim rested entirely on executive instructions dated 17.11.1981 which governed temporary procedure for selection to post of Assistant Regional Transport Officer pending framing of statutory rules.

Though recommendations for convening DPC were made in 2021 and vacancies existed, Government consciously declined to proceed with promotions and instead framed Odisha Transport Service Rules, 2021 under proviso to Article 309 Constitution providing for recruitment through competitive examination.

Single Judge as well as Division Bench accepted employees’ contention substantially relying on principle flowing from Y.V. Rangaiah v. J. Sreenivasa Rao that vacancies arising before new rules should be filled under old regime.

Supreme Court held this approach fundamentally erroneous in light of authoritative ruling in State of Himachal Pradesh v. Raj Kumar.

Court extracted extensive passages from Raj Kumar and reiterated:

• no universal rule exists that vacancies must be filled under old rules;
• right to consideration arises only under rules prevailing on date consideration actually takes place;
• and Government can legitimately decide not to fill vacancies under old regime owing to restructuring or policy changes.

A particularly important aspect emphasised by Supreme Court was:
the Executive Instructions themselves were temporary and conditional.

Paragraph 4 of instructions expressly stated that arrangement would continue only “pending finalization of cadre rules.” Thus, very foundation of respondents’ claim disappeared once 2021 Rules were framed.

Court also analysed saving clause in preamble to 2021 Rules and clarified distinction between:

• completed acts done under old regime,
  and
• mere preliminary proposals or recommendations.

Since:

• DPC was never constituted,
• no selection process was completed,
• and no appointment had been made,
  there existed no accrued right capable of protection.

Supreme Court further clarified that:

• statutory rules framed under Article 309 override executive instructions under Article 162;
• and selection posts do not confer automatic promotional rights.

Court strongly criticised Division Bench for failing to meaningfully engage with binding precedent in Raj Kumar despite same being specifically cited before it. Mere cursory observation that precedent was “inapplicable” without analysis was held insufficient judicial reasoning.

Accordingly, judgments of Single Judge and Division Bench were set aside and appeals of State allowed.

RATIO

No employee acquires vested right to promotion merely because vacancy arose prior to enforcement of new recruitment rules. Right of consideration exists only in accordance with rules prevailing on date consideration actually takes place. Executive instructions operating temporarily pending framing of statutory rules automatically stand superseded upon enactment of rules under Article 309 Constitution. Mere recommendation for convening DPC or existence of vacancies does not create accrued or enforceable right. Government is entitled, as matter of policy, to restructure cadre and fill posts under new statutory rules instead of old executive instructions.