SHEIKH ABDUL RASHID & ORS. v. STATE OF J & K & ORS

Citation: [2007] 12 S.C.R. 940

Court: Supreme Court of India

Bench: S.B. SINHA, J.M. PANCHAL

Case summary

SHEIKH ABDUL RASHID & ORS. v. STATE OF J & K & ORS.pdf

Judgment text

SHEIKH ABDUL RASHID & ORS. v. STATE OF J & K & ORS. DECEMBER 5, 2007 [S. B. SINHA AND J. M. PANCHAL, JJ. ) Service Law-Seniority-Inter se seniority-Betweenpromotees and direct recruits-Retrospective promotion ofpromotees-By an executive order-With effectfrom the date ofpreparation ofPromotion List-Ignoring direct recruits, appointed prior to the promotees- Propriety of-Held: The order granting retrospectivepromotion is bad in law-Entry in promotion list, by itselfwould not confer right to be promotedfrom that date-The order was in derogation ofthe statutory Rules-However, monetary benefits granted to the promotees, not to ,_. be recovered-Jammu and Kashmir (Classification, Control and Appeal) Rules, 1956-r. 24-Jammu and Kashmir Police Manual- Regulations 382, 384, 390, 392 and 398-Jammu and Kashmir Police (Gazetted) Service Recruitment Rules, 1984-rr. 5, 14 and 20- Constitution ofIndia, 1950-Article 142.

Administrative Law-Executive order-Validity of-Held: Such order is valid only when it is issued in consonance ofstatutory rules. The names ofprivate respondents were entered in promotion List E on 25. 4. 1978 for the post of Sub-Inspector. They were promoted on officiating basis on 19. 5. 1979. By a Notification dated 1. 8. 1985, State directed their regular promotion w. e. f. the date of preparation of Promotion List. The same was subsequently cancelled, but by another order dated 3. 12. 1985, promotions were directed to be granted with retrospective effect from the date of Promotion List. Appellants, who had joined on the post as direct recruits before the promotion ofthe respondents on officiating basis, filed Writ Petition. Single Judge of High Court allowed the same holding that the appellants were senior to the respondents; and that SHEIKHABDULRASHIDv. STATE 941 concept ofretrospective pro~otion having not been contemplated /-.

under the Rules, the manner in which promotion was effected, was illegal. Division Bench accepted the finding of Single Judge, but on equitable considerations held the petition infructuous in view ofthe fact that the respondents had already been promoted to the post of Deputy Superintendent ofPolice which was governed by another set of rules. Hence the present appeals. Allowing the appeals, the Court HELD: 1. The order dated 3. 12. 1985, promoting the respondeats with retrospective effect is exfacie bad in law. Not only no retrospective promotion could be granted as has been held by both the Single Judge as also the Division Bench, entry in List E, having regard to Regulation 390 ofthe Jammu and Kashmir Police Manualper se did not confer any right upon the respondents to be promoted from that date. [Para 14) [947-CJ _.. ,, 2. No executive order could be issued in derogation of the statutory rules far less a legislative act.

Jammu and Kashmir (Classification, Control and Appeal) Rules, 1956 being statutory in nature and having been framed under Jammu and Kashmir Civil Servants Removal ofDoubts and Declaration ofRights Ordinance, 1956 have statutory force, the executive order in question was required to be issued in consonance and not in derogation thereof. [Para 15) [947-D) 3. Although the statute provides for grant of officiating promotion, but the same is not conducive in the sense that even after getting officiating promotion, one may be reverted to the original post held by him. The Rules having been provided for officiating promotion, Single Judge was correct in taking that factor also into consideration for the purpose ofdetermining the validity ofthe order impugned before the High Court. The order even otherwise appears to be malafide having been passed for unauthorised purpose. Ifthe order dated 3. 12. 1985 is read with the earlier one being dated 1. 08.

1985, the intention of the Government to favour the private respondents herein becomes explicit. It is not expected of government to brazenly favour one set ofemployees so as to defeat the bonafide claim of the other. [Para 20] (948-D-FJ 4. However, in exercise of discretionary jurisdiction under Article 142 of the Constitution oflndia, it is directed that despite this order, if any monetary benefit has been conferred upon the private respondents, the same may not be recovered. [Para 21] (948-G-HJ State ofBihar and Ors. v. Akhouri Sachindra Nath and Ors. , [1991) Supp 1 SCC 334; Kaushal Kishore Singh v. Dy. Director of Education and Ors. , (2002) 9 sec 634; and State ofUttaranchal and Anr v. Dinesh Kumar Sharma, (2007) 1sec683, relied on. CIVIL APPELLATE JURISDICTION: Civil Appeal Nos. 5632- 35 of2007. From the final Judgment and Order dated 27. 7. 2005 ofthe High ,_ Court of Jammu & Kahsmir at Srinagar in LPA Nos. 164/2004, 6, 19 and 20/2005. Paramjit Singh Patwalia, S. R.

Singh, Biinal Roy Jad and Sunita Pandia for the Appellants. G. M. Kawoosa and N. Ganpathy for the Respondents. The Judgment ofthe Court was delivered by S. B. SINHA, J. 1. Leave granted. 2. Vexed question of inter se seniority between the appellants and the private respondents herein is in question in this appeal which arises out ofa Judgment and Order dated 27. 07. 2005 passed by the High Court of Jammu and Kashmir at Srinagar in LPA No. 164 of 2004 and LPA Nos. 6, 19 and 20 of2005. 3. Names of the respondents were entered in the List E on 25. 04. 1978. They were promoted on officiating basis on 19. 05. 1979. . - 4. The Government ofJammu and Kashmir, however, on or about 01. 08. 1985 issued a notification directing their promotion with .. --{ . l retrospective effect ignoring the seniority ofthe appellants herein inter alia stating: "(a) The above mentioned petitioners as well as non-petitioners, who were brought on promotion list 'E' vide PHQ order No.

282 of 1978 and 283 of 1978 dated 25. 04. 1978, barring these who face any moral stigma notwithstanding the fact that they were -· brought on promotion list 'E' and have not so far been promoted as Sis, shall be deemed to have been promoted as Sis for the purpose oftheir seniority only, w. e. f. the date they were brought on list 'E', i. e. , 25. 04. 1978. [ (b) The ASis who were promoted as Sis, vide Kashmir Police Office Order No. 288of1978 dated 05. 06. 1978 and Jammu Range Police Office order dated 158of1978 dated 07. 06. 1978, w. e. f. 1. 6. 1978, shall also be deemed to have been promoted as Sis, w. e. f. 24. 6. 1978 for seniority purposes only and shall figure ·1 at appropriate places in the combined seniority list ofSis in order oftheir seniority. " 5. Realising that the said order may be held to be illegal by a court of law, by an order dated 3. 12. 1985 the same was cancelled. On the same day, however, by an order No.

1263of1985, promotions were directed to be granted with retrospective effect from 25. 04. 1978, i. e. , from the date on which the respondents were brought on promotion List E. 6. Questioning the said order, a writ petition was filed by the appellants herein in the High Court. A learned Single Judge ofthe said · High Court allowed the said writ petition opining: "... Unless a person is formally promoted to the post of Sub- Inspector, he cannot press his claim that he has been promoted substantively to the post of Sub-Inspector merely on the ground of having been brought in the panel of eligible candidates in promotion list 'E' .. . In such event, the private Respondents, therefore, in terms ofthe Order dated 25. 4. 1978, cannot be said to have been promoted to the posts ofSub-Inspectors.

They have been only brought on the promotion list and their promotion orders )- had to be issued by the official - respondents only subject to the fulfillment ofthe conditions mentioned against each by a separate/ independent order. " In regard to the question ofseniority, it was held: "It is not in dispute that the Petitioners in both the writ petitions have been appointed on 25. 4. 1979 as Sub-Inspectors and their seniority, therefore, has to commence from that date notwithstanding that they have been put on probation for a period ofthree years. Therefore, the non-official respondents including respondents 124 to 134, whose names figured in Order No. 141 :. of 1980 dated 14. 4. 1980 issued by DIG of Police, Kashmir, as officiating promotions against the vacancies oflnspectors/ Sub- Inspectors undergoing practical training, who have been promoted after 25th April 1979 cannot claim to rank senior to the Petitioners.

It, therefore, follows that all those persons/ respondents, who have been promoted after 25th April, 1979 (when the Petitioners were 1appointed as direct recruits), have to be termed as junior to the petitioners. Under Rules 382 to 399, modes ofpromotions to the higher rank specified therein are provided. The non-obstante clause or expression used in Rule 399 further gives a discretion to the Inspector General ofPolice for making substantive promotions to the posts of Sub-Inspectors after holding oral/ written test in addition towhat is provided in other Rules referred supra. " So far as the question of inter se seniority between the appellants and the private respondents is concerned, unhesitatingly it was opined that the appellants are seniors. The learned Single Judge held that the concept ~ ofretrospective promotion having been contemplated under the Rules, the manner in which promotion was effected was held to be illegal. 7.

The Division Bench ofthe High Court accepted the said findings ofthe learned Single Judge. It, however, proceeded to determine the issue on equitable considerations opining that as both the appellants as also the private respondents were already promoted to the posts of Deputy Superintendent ofPolice in the J&K Police (Gazetted) Service, governed by another set of rules, the writ petition became infructuous and the direction ofthe learned Single Judge on the aforementioned premise to ~ re-draw the seniority list placing the respondents above the appellants in "" the seniority list ofSub-Inspectors was not necessary to be implemented. 8. Mr.

Paramjit Singh Patwalia, learned senior counsel appearing on behalfofthe appellants, submitted that the Division Bench ofthe High Court committed a serious error insofar as it failed to take into consideration that unless anduntil the appellants are held to be entitled to promotion in terms ofthe extant rules, their cases may not be considered for promotion to the post ofSuperintendent ofpolice. 9. Indisputably, the matter relating to seniority and promotion is governed by Jammu and Kashmir Civil Services (Classification, Control and Appeal) Rules, 1956 (for short "the 1956 Rules") and Jammu and Kashmir Police Manual. Rule 24 of the 1956 Rules provides that seniority should be _, determined on the basis ofinitial appointment to the post Appellants were appointed on 25. 04. 1979 as direct recruits in the post ofSub-Inspectors. Private Respondents were working as Assistant Sub-Inspectors at the relevant time.

In terms ofJammu and Kashmir Police Manual, different registers are maintained. Regulation 382 ofthe Police Manual provides for promotion from one rank or grade to another rank or grade. Clause (3) ofRegulation 382 reads, thus: "(3) For the purpose ofregulating promotion among enrolled police officer, six promotion lists A, B, C, D, E and F shall be maintained. Lists A, B, C and D shall be maintained in the offices ofthe Range Deputy Inspectors General of Police, as prescribed in rules 386, 387, 388 and 389 and will regulate promotion to the ranks ofHead Constable Junior Grade, Head Constable Senior Grade and Assistant Sub-Inspector. Lists E and F shall be maintained in the office ofthe Inspector General ofPolice as prescribed in rules 390 and 393(2) and will regulate promotion to the ranks of Sub- Inspector and Inspector. " 11.

Regulation 384 ofthe Police Manual also provides for the power to make officiating promotions which in case of promotion to Sub- Inspectors and Assistant Sub-Inspectors was within the jurisdiction of Inspector General of Police. Clause (2) of Regulation 384 deals with officiating promotions. Clause (2) ofRegulation 390 provides that entry in the List E would be the entry point for the purpose of promotion to the post of Sub-Inspector stating: "(2) No Assistant Sub-Inspector shall be confirmed in a substantive vacancy in the rank of Sub-Inspector unless he has been tested for at least a year as an officiating Sub-Inspector in independent charge of a police station. " Regulation 392 ofthe Police Manual provides for the method offilling up temporary vacancies in the rank of Sub-Inspector in terms whereof "the order in which names occur in the list should be disregarded, the opportunities ofofficiating in the higher rank being distributed as evenly as possible".

Regulation 398 provides for promotion register. 13. The relevant provisions of the Jammu and Kashmir Police (Gazetted) Service Recruitment Rules, 1984, being Rules 5, 14 and 20, read as under: ' - "5. Method ofrecruitment - Appointment to the service shall be made- (a) by direct recruitment (b) by promotion; in the ratio and in the manner specified against each post in Schedule - IL 14. Recruitment by promotion -(1) There shall be a Departmental Promotion Committee constituted by the Government from time to time who shall examine the promotion cases. (2) *** *** *** (3) The Cornnlittee shall examine the service records ofthe officers included in the aforesaid list and prepare a select list ofofficers on the basis ofmerit and suitability with due regard to seniority. 20. Maintenance of seniority lists - Seniority ofthe members of the service shall be regulated under the Jan11Ilu and Kashmir Civil SHEIKHABDULRASHIDv. STATE[SINHA,J.

] 947 Services (Classification, Control and Appeal) Rules, 1956. The Administrative Department shall maintain an up to date and final seniority lists in each grade ofthe service. " ... 14. It is not in dispute that ifthe order dated 3. 12. 1985 is set aside, the appellants herein would be held to be senior to those of the respondents. The order dated 3. 12. 1985 is ex facie bad in law. Not only no retrospective promotion could be granted as has been held by both the learned Single Judge as also the Division Bench, entry in List E, having regard to Regulation 390 ofthe Jammu and K~ir Police Manual per se did not confer any right upon the respondents to be promoted from that date. 15.

No executive order could be issued in derogation ofthe statutory rules far less a legislative act The Rules being statutory in nature and having been framed under Jammu and Kashmir Civil Servants Removal ofDoubts and Declaration of Rights Ordinance, 1956 have statutory force, the executive order in question was required to be issued in consonance and not in derogation thereof. In State ofBihar and Ors. v. Akhouri Sachindra Nath and Ors. , [1991] Supp 1 SCC 334, this Court held: " ... It is well settled that no person can be promoted with retrospective effect from a date when he was not born in the cadre so as to adversely affect others. It is well settled by several decisions ofthis Court that amongst members ofthe same grade seniority is reckoned from the date oftheir initial entry into the service... " In Kaushal Kishore Singh v. Dy. Director ofEducation and Ors. , [2002] 9 SCC 634, this Court stated the law, thus: "5.

The claim ofseniority ofthe employee is always determined in any particular grade or cadre and it is not the law that seniority in one grade or cadre would be dependent on the seniority in another grade or cadre. " In State of Uttaranchal and Anr. v. Dinesh Kumar Sharma, ... [2007] 1 sec 683, it was opined: "34. Another issue that deserves consideration is whether the year in which the vacancy accrues can have any relevance for the .. purpose ofdetermining the seniority irrespective ofthe fact when the persons are recruited. Here the respondent's contention is that since the vacancy arose in 1995-96 he should be given promotion and seniority from that year and not from 1999, when his actual appointment letter was issued by the appellant. This cannot be allowed as no retrospective effect can be given to the order of .. appointment order under the Rules nor is such contention reasonable to nonnal parlance. This was the view taken by this Court in Jagdish Ch. Patnaik v.

State ofOrissa" 20. Similarly, although the statute provides for grant ofofficiating promotion, but the same is not conducive in the sense that even after getting 1officiating promotion, one may be reverted to the original post held by him. We do not mean to say that the seniority would be reckoned from the date ofconfinnation but we only intend to point out that the Rules having been provided for officiating promotion, the learned Single Judge was correct in taking that factor also into consideration for the purpose ofdetennining the validity ofthe before impugned order the High Court. The said order dated 3. 12. 1985 even otherwise appears to be ma/afide having been passed for unauthorised purpose. Ifthe said order dated 3. 12. 1985 is read with the earlier one being dated 1. 08. 1985, the intention ofthe Government to favour the private respondents herein becomes explicit. It is not expected ofa government to braz.

enly favour one set of employees so as to defeat the bona fide claim of the other set of employees. We, therefore, are ofthe opinion, that the impugnedjudgment cannot be sustained which is set aside accordingly. The appeals are allowed. 21. However, in exercise of our discretionary jurisdiction under Article 142 ofthe Constitution ofIndia, we direct that despite this order ifany monetary benefit has been conferred upon the private respondents, the same may not be recovered. K. K. T. Appeals allowed.