R.K. MOBISANA SINGH v. KH. TEMBA SINGH & ORS.

A

DECEMBER 12, 2007 •, B

authority to determine inter se seniority of parties in view of the principles enunciated by this Court.

E The question which arose for consideration in these appeals was whether the ad hoc promotions granted to the employees from the post of Section Officer (Grade-n to the post of Assistant Engineer in the Public Works Department of the State Government against vacancies in promotee quota, could have been directed to be regularized with retrospective effect so as to effect the inter se seniority between the direct recruits and the promotees. Appellants and the other promotee respondents inter alia contended that they having been promoted against vacancies arising in the year 1985 in the promotee quota and their services having been regularized with retrospective effect and not by way of stop gap employment, their seniority should be considered; that the recruitment ,j

rules did not contain any prohibition on grant ofregularisation with retrospective effect and the same being permissible, the promotees were H 434

R.K. MOBISANA SINGH v. KH. TEMBA SINGH 435

entitled to seniority with effect from the date from which their services A were regularized with retrospective effect; and that the Single Judge of High Court, having directed examination of the matter by a fact finding body upon proper application of mind and determination of seniority having regard to the decisions of this court is to be affirmed. B Direct recruits contended that the promotees were not entitled to seniority from the date of their ad hoc promotion· since the ad hoc promotions were found to have been made in violation of the Recruitment Rules; that the procedure prescribed for grant of regular promotion had not been followed; that some of the promotees did not C fulfil the requisite eligibility criteria prescribed by the rules; that the orders passed by the High Court directing regularisation with retrospective effect did not confer on them any consequential seniority; that some judgment of the High Court giving consequential seniority were reviewed in favour of the direct recruits; thatthere is no Rule which D y enables the Government to give seniority with retrospective effect to the promotees; and that the consequent orders of the Government regularizing the services specifically stated that the seniority shall be determined later was not challenged by the promotees. Disposing of the appeals, the Court E

436 SUPREME COURT REPORTS [2007] 13 (~ddl.) S.C.R.

A 1.3.'Ifthey had been given regularisation with retrospective effect, the same by itself may not be a ground to apply the said order ipsofacto for determining the inter se seniority. Seniority although is not a . fundamental right but a civil right. Such a right of the direct recruits could not have been taken away without affording an opportunity of hearing to them. It was obligatory on the part of the official respondents to take into consideration thatthe retrospective regularization could be.granted only when there exists such a Rule. If Rules were not followed at the time of grant of promotion, question of grant of regularization with retrospective effect w.ould'not arise. Retrospective regularization whether in terms of the directions of the High Court or otherwise, thus, although could confer other service benefits to the officer concerned, · but the same cannot be held to be of any assistance for reckoning seniority with retrospective effect. It was for the DPC to recommend in regard thereto. In some of the cases, evidently the procedure has not been followed. Therefore, the question of their acquiring seniority over y the direct recruits does not arise. [Paras 39,40,41 and42] (463-F-H; 464-A-C] 1.4. The ma~er requires a closer scrutiny by the State itself. As the function relating to determination of inter se seniority is that of the E State, the constitution of a committee, as proposed by the Single Judge of High Court is not approved. However, it would be open to the State to do so, ifit so desires. Therefore, the competent authority of the State is directed to determine the inter se seniority of the parties in view of the principles enunciated by this Court and apply the same to the fact F .of each case. [Para 43] [464-D-E) Direct Recruit Class II Engineering Officers' Association v. State of Maharashtra and Ors., (1990] 2 SCC 715; Sura} Prakash Gupta v. State ofJ & Kand Ors., (2000]7 SCC 561; K Siva Redlfyv. State ofA.P., [1988) Supp. SCC 225; Ramendra Singh v. Jagdish Prasad, (1984] Supp SCC G 142; MK Shanmugam andAnr. Y. Union ofIndia and Ors., (2000] 4 SCC 476; Swapan Kumar Pal and Ors. v. Samitabhar Chah-aborty and Ors., [2001] 5 SCC 581; Md lsrail and Ors. v. State ofWB. and Ors., (2002) 2 SCC 306; D.N Agrawal and Anr. v. State ofMadhya Pradesh and Ors., [1990] 2 SCC 553 and Santosh Kumarv. G.R. Chawla, (2003] 10 SCC H 513, relied on.

R.K. MOBISANA SINGH v. KH.TEMBA SINGH 437 [SINHA, J.] CIVIL APPELLATE JURISDICTION: Civil Appeal No. 5837 of A 2007. From the Judgment and Order dated 24.08.2004 of the High Court ofGauhati, Imphal Bench in Writ Appeal No. 392 of2003. WITH B C.A. No. 5838 & 5848 of 2007. A. Sharan, ASG., V.N. Ganpule, Raju Ramachandran and L.N. Rao, S.K. Bhattacharya, L:K. Paonam, Niraj B. Paonam, Sapam Biswajit Meitei, Ashok Kumar Singh, Naresh Kumar Gaur, Aparna Bhat, P. C Ramesh Kumar and Khwairakpam Nobin Singh for the appearing parties. The Judgment of the Coll.rt was delivered by S.1~. SINHA, J. 1. Leave granted.

2. These appeals involving similar questions oflaw and fact were taken up for hearing together and are being disposed of by this common y judgment. Appellant as also the private respondents hereto have been working as Assistant Engineers in the Public Works Department. The promotees are diploma holders, or degree holders in Engineering. They were holding the posts ofS.O. Grade 1, whereas the direct recruits are E Graduates in Engineering. Recruitment to the post of Assistant Engineer and/or promotion thereto, although is governed by the Public Works Department, Manipur Assistant Engineer (Civil/Mech) Surveyor of Works Recruitment Rules of 1969, 1975 and 1984 made under the proviso appended to Article 309 of the Constitution of India; there does not exist p any Rule governing seniority and in particular inter se senioritjr amongst the direct recruits and the promotees.

3. In terms of the recruitment rules, whereas forty per cent of the posts are to be filled by direct recruitment from the open market, 60 per cent of the posts are to be filled up by promotion in the following sub- G quota:- L 50% by selection from amongst the Engineering Degree holders who have rendered a minimum of 3 years regular service as S.O. Grade I as equivalent Post. H

438 SUPREME COURT REPORTS [2007] 13 (Addi.) S.C.R.

A Provided that is sufficient number of Degree holders are not available, the vacancies may be filled up by Diploma holders with 8 years regular ser,rice as S.O. Grade-I.

11Copy pinpoint11. 50% by selection from amongst the Engineering Diploma Holders of3 years course with 8 years regular service as S.O. B Grade I or non Degree/non Diploma holders with 15 years outstanding record as S.O. Grade I.

4. Before embarking on the questions involved in these matters, we may notice the fact of the matter.

C 5. 'The Government ofManipur informed the Manipur Public Service Commission in regard to existence of 39 vacancies in the posts of Assistant Engineer (AE) on or about 18.4.1977. A request was made to convene Departmental Promotion Committee for filling up the said vacant posts. Some of the promotees, who were either the Graduates in Engineering D or were diploma holders in Engineering were working as Section Officers (Grade-I). We would come to their respective dates of appointment a little later, but, at this stage, it may be noticed that in terms of the Recruitment Rules, in order to become eligible for promotion, three years' experience for the Graduates in Engineering and eight years' experience for the diploma holders in the posts of Section Officer (Grade-I) was necessary. They had been promoted on an ad hoc basis without following the procedure laid down under the Recruitment Rules. On or about 6.3 .1979, the Government of Manipur sent a revised proposal for appointment to the post of Assistant Engineer (Civil/Mechanical) by promotion on regular basis. However, yet again on 22.6.1981, the Government ofManipur directed the Commission for convening a regular Departmental Promotion Committee for consideration of promotion to the post of Assistant Engineer(Civil/Mechanical) in the following terms : "I am directed to send herewith a requisition in the MPSC Form G No. 6 duly filled in for convening a regular DPC for consideration of promotion to the post of Assistant Engineer (Civil/Mech.). Required ACRs and Integrity certificates in respect of the eligible officers are being sent separately. You are requested kindly to H examine the case for convening a DPC at an early date.

R.K. MOBISANA SINGH v. KH. TEMBA SINGH 439 (SINHA, J.] Kindly acknowledge the receipt of this letter. A Yours faithfully Encl : As above (R. Marulung) Under Secretary to the Govt. ofManipur" B

6. Respondents were promoted as Assistant Engineers on an ad hoc basis. We may notice thatthe contesting respondent in SLP(C) No. 16901 of2006 was promoted as Assistant Engineer on ad hoc basis against a permanent vacancy. He was appointed as Assistant Engineer on officiating C basis with effect from the date of joining of the post on the recommendations of the Departmental Promotion Committee held on 18.7.1985 and 20.7.1985 in the 1985 vacancies, which was followed by an order dated 06.09.1986 regularizing his services from 20.09.1985.

7. Indisputably, a seniority list was published on 31.1.2000. D y

8. Ten writ petitions were filed by the promotees before the High Court raising a grievance that in the said seniority list, although they were shown as Assistant Engineers, having been appointed against the vacant posts in the promotee quota under clear vacancies which were available in 1981 itself, they were appointed on ad hoc basis. According to them, although they were promoted to the post of Junior Engineer on ad hoc basis in or about 1981, they had been shown as junior to direct recruits who were appointed in 1986.

9. A learned Single Judge of the High Court noticed that in some of the cases, regularization with retrospective effect had been directed to be given. It took note of the contention of the writ petitioners that they fulfilled the eligibility criteria for promotion, but since at the relevant time, the Commission became defunct, they were promoted on ad hoc basis against the available vacancies made for the promotees. The learned Single Judge G recorded that the counsel appearing on behalf of the State was not in a position to inform the court in regard to the vacancy position as was obtaining then and furthermore the statements made in the writ application in regard to promotion in excess of quota or grant of promotion in absence of availability of any vacancy having not been controverted, the same H

440 SUPREME COURT REPORTS [2007] 13 (Addi.) S.C.R.

A should be accepted to be correct. It was furthennore noticed that the minutes of the Review Committee were not made available to the Court and, therefore, it arrived at a conclusion that the Review Committee failed to discharge its duties, as a result whereof the impugned seniority list failed to demonstrate the correct seniority position drawn in accordance with law.

10. The learned Single Judge therefore, directed for preparation of ~ a fresh seniority list. It was also directed that a Monitoring Committee be constituted to ascertain the availability of vacancies with reference to the years of appointment of the various promotees vis-a-vis, the direct recniits and to examine whether any of them encroached upon the quota meant for others. It was furthermore directed that in view of the failure on the · part of the State Government to place the correct factual position to conduct a basic fact finding exercise in regard to availability of vacancies in respect of the quotas, if any, at the relevant point of time. D- It was directed : "32. The Committee is to undertake the exercise having followed the following guidelines a. The respective date of initial promotion on ad hoc basis of the petitioners be treated as substantive appointment· as Assistant Engineer. b. The Co~ttee is to ascettain the availability of vacancy with ·1'.eference to the year of appointment of the petitioners already done on ad hoc basis and also the appointment of private respondents and to examine whether any of them encroached the quota meant for others. c. The promotees and direct recruitees shall be fitted against the available vacancies within their respective quotas. G d. In case, any excess promotion/direct appointment are found . to be there, h~ or they should be adjusted against the vacancy made available subsequently.. e. In considering the availability of vacancy the Committee must H

R.K. MOBISANA SINGH v. KH. TEMBA SINGH 441. (SINHA, J.] count the vacancy simplicitor be it temporary vacancy or A substantive vacancy in the post of Assistant Engineer. £ After exhausting the fitment exercise the intra seniority viz., the seniority of the promotee themselves and the seniority of the direct recruitees themselves should be prepared separately. B g. Thereafter, having maintained ratio of3:2 interse seniority list is to be prepared, first 3 promotees would be listed thereafter 2 direct recruitees would be listed followed by 3 promotees 2 direct and so on. In case in any year it is found that only some promotions are made out, no direct recruitment, the c promotees should be shown enbloc senior vis-a-vis in case any particular year it is found that the only direct recruitments · were made and no promotion, the direct recruitees be shown enbloc senior. ·h To remove any co~sion and doubt a draft inter se seniority D y be published first inviting claims and objections and personal hearing of the obje.ctor/claimant if any, be allowed and, thereafter, the final inter se seniority list be published. The said exercise must be completed within a period of3 months from this day. E ·11. Eleven Writ Appeals were filed theteagainst; ten by the direct recruits and one by the State of Manipur which was marked as Writ Appeal No. 384 of2003. It appears that the writ appeals came up before two Division Benches of the High Court in two batches. The judgffient in the first batch was rendered by a· Division Bench on 31.3 .2004 in terms F whereof the judgment of the learned Single Judge was affirmed. The .Division Bench in those cases held that having regard to the fac.t that the orders of the High Court granting retrnspective regularization to the promotees having nof been challenged either by the direct recruits or by the State Government had attained finality. In the aforementioned premis.e, G · it Was-directed : "l 0. From the af<?resaid, it is apparent to us, that for whatever reasons the orders passed by the High Court in the matter of regularization of the services of the promotee officers covered under H

442 SUPREME COURT REPORTS [2007] 13 (Addi.) S.C.R.

A the writ appeals, were not challenged by the State Government and has attained finality. The appellants also choose not to file appeals against those orders moved applications for review of those no to file applications for review of those orders as has been done in other cases. In the aforesaid circumstances, the promotee B officers shall be taken to be regularly promoted from the date they have been regularized in the post of Assistant Engineers. In the matter of seniority, without there being any impediment under Rules, the seniority shall be counted in all circumstances from the date of regular appointment on the posts." c 12. Indisputably, the review petitions filed thereagainst were dismissed.

13Copy pinpoint13. However, the four remaining appeals came up for consideration before another Division Bench, (although the senior Judge in both the D batches of Writ Appeals was common). In the second judgment which was pronounced on 24.8.2004, the Division Bench while allowing the v appeal in part, upholding the final seniority list, found the directions of the learned Single Judge in regard to constitution of three member Monitoring Committee to make necessary corrections in the final list dated 31.1.2000 E in accordance with law and more particularly following the general guidelines for promotion of 1982 and for determining seniority of 1959 and a proposition "A" of the decision of this Court in the case of direct recruitment; to be improper. Both the aforementioned judgments of the Division Bench are now under challenge before us at the instance of the direct recruits and the post 1985 vacancies promotees respectively.

14Copy pinpoint14. The question herein which arises for our consideration is as to whether the ad hoc promotions granted to the employees from the post of Section Officer (Grade-I) to the post of Assistant Engineer in the P.W.D. of Government ofManipur could have been directed to be regularized with retrospective effect so as to effect the inter se seniority between the direct recruits and the promotees. Two seniority lists were published; one in the year 1987 and another in 2000.

15Copy pinpoint15. There are ten direct recruits before us. The details of their services are as under:- H

"A. Direct Recruits 2000 List 87 List

1. TembaSingh Degree Direct Appointed At serial holder Recruit in 1985 no.33

2. Rabindra Kumar --do-- --do-- --do-- At serial Singh no.38

3. Ch. Biren Singh --do-- --do-- --do-- At serial no.39

4. G.Lungalin --do-- --do-- Appointed At serial At serial 5.1.83 no.83 no.30

5. L. Ingochouba --do-- --do-- Appointed At serial Singh in 1985 no.48

6. M. Thaimon --do-- --do-- Appointed At serial At serial Singh in 1980 no.45 no.8

7. Ksh. Birendra --do-- --do-- --do-- At serial At serial Singh no.49 no. 10

8. Kh. Irabot Singh --do-- --do-- --do-- At serial At serial no.55 no. 13

9. Th. Tharnbalngou --do-- --do-- --do-- At serial At serial Singh no.63 no. 17

10. Pradeep Mukherjee --do--· --do-- Appointed At serial At serial 15.1.81" no. 77 no.26 tw

16Copy pinpoint16. There are five promotee Assistant Engineers whose seniority has been detennined by the High Court, the details whereof are as under:- SL. Name of the Date of Date of Ad hoc Date of Details of the Government orders of No. promo tee appointment appointment regular/officiat- High Court regularization/Remarks ing appointment Order by which regularized I. Ch. Tiken 26. 7.1980 15.10.1981 AE 20.9.1985 Retrospective Government order Singh Section on regular AE on regular regularization regularizing the (Contesting Officer basis on basis on from 26. 7.1983 services \V.e.f. Respondent Grade I recommendation recommendation under the 26. 7.1983 explicitly No. I in DOB 1.9.57 of DPC ofDPC relevant R.R. indicates seniority to SLP Arising vide order dated be determined later out of W.A. 5.4.1989 in C.R. No. 393/03) No. 392 of 1988 At serial no. 37 in the No order as to seniority list retrospective 13 seniority 0 0

2. I. Lokendra 26.6.1980 15.10.1981 20.09.1985 Retrospective Government order .:::! Singh regularization regularizing the (Contesting Section AE on ad hoc AEon from 26.6.1983 services w.e.f. Respondent Officer basis Officiating vide order dated 26.6.1983 explicitly No. 1 in Grade I basis on 5.6.1990 in C.R. indicates seniority to SLP Arising DOB 1.3.53. recommendation No. 160ofl990 be determined later out ofW.A. of DPC No. 255/01) No order as to retrospective

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At serial no. seniority. 60 in the seniority list The Hon'ble High Court relied on order passed in CR. No. 392 of 1988

3. L. 23.11.1976 9.7.1979 20.9.1985 Retrospective Government order Surchandra regularization regularizing tlie Singh Section AE on ad hoc AE on regular from date he services w.e.f. (Contesting Officer basis basis on became eligible 23.11.1979 explicitly Respondent Grade I recommendation vide order dated indicates seniority to No. I in DOB 1.3.50 ofDPC 13.9.1991 in be determined later ..... ~ ..:....., SLP Arising C.R. No. 399 of out of.W.A. 1991 •-l No. 387/03 trl & W.A. No. No order as to ~ retrospective tl:i 384/03) At serial no. seniority. > CZl The High Court ...... 32 in the seniority list relied on order z 0 passed in CR. :::r: No. 160 of 1991. The High Court in its order recorded that he

0

was not eligible for promotion to A.E.

4. W. Chaoba 06.01.1972 30.10.1976 20.9.1985 Retrospective Government order Singh AE on regular regularization regularizing the (Contesting Section AE on ad hoc basis on from 30. 10.1976 services w.e.f. Respondent Officer basis recommendation vide order dated 30.10.1976 explicitly No. 2 in Grade I ofDPC 17.12.1991 in indicates seniority to SLP Arising C.R. No. 639 of be determined later. out ofW.A. DOB 1.3.49 1991. No. 385/03) No order as to retrospective At serial no. seniority. 56 of the seniority list The High Court relied on order passed in C.R. No. 132/1990 wherein the High Court had granted regularization along with seniority. This order was challenged in a review oetition

•

by the Direct ::::0 Recruits and the ~ order has been modified to be :s:: 0 extent that the seniority will be determined ->z IJ:I C /l

according to rules. ......... C/l >

5. S. Tejamani 23.11.1976 9.7.1979 20.9.1985 Retrospective Government order .Zo ... z C/l ......

Singh Section AE on Ad hoc AE on regular regularization regularizing the ::r: ::r: ">~ (Contesting Officer basis basis on vide order dated services w.e.f. Respondent Grade I recommendation 18.12.1991 in 9. 7.1979 explicitly . ....... No. l in l.ll.47 ofDPC C.R. No. 639 of indicates seniority to ......... ~ SLP Arising 1991. be determined later ::r: ....., out ofW.A. tTl No. 386/03) At serial no. No order as to retrospective :s:: IJ:I 35 of the seniority > C/l seniority list ...... The High Court zQ relied on order ::r: passed in C.R. ' No. 132/1990 wherein the high court had """' """' -.J

0

0 granted regularization along with seniority. This order was challenged in a review petition by the Direct Recruits and the order has been modified to the extent that the seniority will be determined according to '

. rules . 28.10.1971 30.10.1976 20.9.1985 Retrospective Government order

6. Th. Rupachandra AE on regular regularization regularizing the Section AE on Ad hoc basis on from vide order services w.e.f. Singh Officer basis recommendation dated 23.1.1992 30.10.1976 explicitly (Contesting Grade I ofDPC in C.R. No. indicates seniority to Respondent No. 1 in SLP DOB 2372 of 1990 be determined later. Arising out 1.11.48 No order as to ofW.A. No. retrospective 385/03) At seniority serial no. 59 of the seniority list

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17Copy pinpoint17. There are four promotees whose claim to seniority has been rejected by the High Court.

SL. Name of the Date of Date of Ad hoc Date of High Court. Violations No. promotee appointment appointment regular/officiating order by which appointment regularized I. R.K. 25. 7.1980 6.5.1983 20.9.1985 Retrospective - Admittedly the Mobisana Section AE on ad hoc AEon regularization promotion was dehors (Degree Officer basis officiating w.e.f. 26.7.1983 the R.R.s ; there was holder) Grade I basis on under the no selection process (Petitioner (DOB recommendation relevant R.R. conducted by the in SLP(C) 1.3.56) ofDPC vide order dated DPC No. 20724 3.3.2000 in - Became eligible for· of 2005) W.P.(C) No. 188 promotion only after of 2000 three years from· the At serial no. date of appointment 64 in the High Court i.e. on 25. 7.1983 but seniority list order was promoted on ad specifically hoc basis on6.5.1983, states his much earlier to his regularisation eligibility date. shall be counted for the purpose of retrial or pensionary benefits and oeniority to be determined

0

according to rules.

Government order regularizing the services explicitly indicates it is for retrial and pensionary benefits. Seniority to be determined later

2. M. 25.7.1980 26.7.1983 20.09.1985 - Admittedly the Hemantaku- Section AE on ad hoc AE on regular promotion was dehors mar Officer basis basis on the R.R.s.; there was (Degree Grade I recommendation no selection process holder) (DOB ofDPC conducted by the DPC (Petitioner 1.3.53) in SLP(C) No. 20725 of 2005) At serial number 45 in senioritv

f

'·

list :::0

3. Th. 25.7.1980 6.5.1983 -Admittedly the ~ Shantikumar Section A.E. on Ad promotion wasdehors ~ 0 Singh (Degree holder) Officer Grade I hoc basis the R.R.s; there was no selection process conducted by the DPC ->z t:l:1 [ /}

- Became eligible for promotion only after three years from the ~

zZ [/}

::r::Q - > [/}

date of appointment .> ::r:: ~ i.e. on 25. 7.1983 but :--< ~ ~ was promoted on ad ::r:: hoc basis on 6.5.1983, ....., much earlier to his tT:1 eligibility date ~ t:l:1 - Admittedly the >

4. Mongjam Budhi Singh (Diploma 14.11.1969 Section Officer Grade I 25.2.1981 A.E. on Ad hoc basis promotion was dehors the R.R.s; there was no selection process -z [/}

Q ::r:: Holder) conducted by the DPC

. .!:>- . ..... Vl

452 SUPREME COURT REPORTS (2007] 13 (Addi.) S.C.R.

18Copy pinpoint18. Out of the aforementioned four persons, only R.K. Mobisana and N. Hemantakumar both of whom are degree holders are before us, but the other two promotees namely Th. Shantikumar Singh and Mongjam Budhi Singh have not filed any special leave petition.

19Copy pinpoint19. Submissions of the aforementioned two appellants whose writ B petitions have been dismissed and the other promotee respondents before us are as under : (i) They having been promoted against vacancies arising in the year 1985 in the promotee quota and their services having .c been regularized with retrospective effect and not by way of stop gap employment, their seniority should be considered in the light of the proposition 'B' contained in the judgment of this Court in Direct Recruit Class II Engineering Officers' Association v. State of Maharashtra and Ors., [1990] 2 n sec 715J. )'

(ii) The recruitment rules having not contained any prohibition on grant of regularisation with retrospective effect and in any event the same being permissible inter alia, in terms of the decision of this Court in Sura} Prakash Gupta and Ors. v. State of E J&K and Ors., [2000] 7 SCC 561, the first judgment of the High Court should not be interfered therewith. The promotees were therefore, entitled to seniority with effect from 26.7.1983 i.e. from the date from which their services were regularized with retrospective effect by orders passed in their favour by the Gauhati High Court, Imphal Bench from time to time. (rii) So far as the second judgment of the Gauhati High Court is concerned, the same does not lay down the correct law being contrary to and inconsistent with the principles laid down by this Court in Direct Recruit (supra), State of West Bengal v. Aghore Nath Dey, [1993] 3 SCC 371 and Sura} Prakash (supra). (iv) The learned Single Judge, in any event, having directed examination of the matter by a fact finding body upon proper H

R.K. MOBISANA SINGH v. KH. TEMBA SINGH 453 [SINHA, J.] application of mind and determination of seniority having regard to the decisions of this Court, the same deserves to be affinned.

20Copy pinpoint20. Mr. L.N. Rao, learned counsel appearing on behalf of the direct recruits, on the other hand, would submit that the promotees were not entitled to seniority from the date of their ad hoc promotion for the _1 following reasons; (i) Ad hoc promotions were found to have been made in violation of the Recruitment Rules. (ii) The procedure prescribed for grant of regular promotion had not been followed. (1ii) Some of the promotees did not fulfil the requisite eligibility criteria prescribed by the rules. (iv) The orders passed by the High Court directing regularisation with retrospective effect did not confer on them any consequential seniority. (v) Some judgment of the High Court giving consequential seniority were reviewed in favour of the direct recruits. E (vi) There is no rule which enables the Government to give seniority with retrospective effect to the promotees. (vii) The Direct Recruits cannot be foand fault with for non questioning of the orders of regularization in favour of the promotees as they, in stricto sensu, did not have the locus standi therefor, until the decision to confer consequential seniority which adversely affected their rights was taken by the competent authority. (viii) All High Court orders granting regularization were silent on seniority. (ix) The consequent orders of the Government regularizing the services specifically stated that the seniority shall be determined later. This order was not challenged by the promotees. H

454 SUPREME COURT REPORTS [2007) 13 (Addi.) S.C.R.

A (x) In three cases where the High Court granted seniority, review petitions were filed by the Direct recruits and the order was modified stating that the seniority will be determined according to rules and as these review orders have become final, any sub mission made contrary thereto should not be permitted to B be raised. (xi) Had there been any mention of seniority in any of the High Court orders referred to in the judgment of the Division Bench, the Direct recruits could have challenged the same. C (xii) Their exists no rule which enabled the Government to grant seniority with retrospective effect.

21Copy pinpoint21. These matters clearly demonstrate as to how complications arise in the matter of determination of inter se seniority because of absence of specific rules made in this behalf. D

22Copy pinpoint22. We may, however, at the outset notice that meeting of the Departmental Promotion Committee had not been convened in terms of the extant rules.

23Copy pinpoint23. We have noticed hereinbefore that there are various recruitment E Rules which are applicable in respect of recruitment or the promotions. We will take a brief survey of the said Rules which may be held to be applicable as orders of promotion have been passed on various days.

24Copy pinpoint24. Under the Recruitment Rules, 1969, the method of recruitment prescribed for the post of A.E. is: "--50 % by direct recruitment from the open market and; --50 % by promotion from amongst the Section Officers (Civil) who had rendered 2 years of regular service in the grade after appointment on regular basis in case of Degree holders and 5 years service in grade after appointment on regular basis in cases of Diploma holders."

25Copy pinpoint25. Under the Recruitment Rules, 1975 the method of recruitment prescribed is:

R.K. MOBISANA SINGH v. KH. TEMBA SINGH 455 [SINHA, J.] "-40% of the overall sanctioned strength by direct recruitment. A -60% of the overall sanctioned strength by promotion. This is to be filled up in the sub-quota as under: (!) 50% sub-quota by selection from amongst the 3 years course Diploma holder (Civil/Mechanical) with 8 years regular service B as S.O. Grade I or a post declared by the Government to be equivalent post. (ii) 40% sub-quota by selection from amongst the graduate Engineer (Civil/Mechanical) who have rendered 3 years regular service as S.O. Grade I or in a post declared by the C Government to be equivalent. (Iii) I 0% sub-quota by selection from amongst non Graduate, non Diploma S.O. Grade I who has rendered 12 years continuous regular service." D

26Copy pinpoint26. Under the Recruitment Rules, 1984, the method of recruitment prescribed is; "-40% by Direct recruitment from the open market. -60% by promotion which is to be filled up under the following E sub quota: (!) 50% by selection from amongst the Engineering Degree holders who have rendered a minimum of 3 years regular service as S.O. Grade I as equivalent Post. F Provided that is sufficient number of Degree holders are not available, the vacancies may be filled up by Diploma holders with 8 years regular service as S.O. Grade-I. (ii) 50% by selection from amongst the Engineering Diploma G Holders of3 years course with 8 years regular service as S.O. Grade I or non Degree/non Diploma holders with 15 years outstanding record as S.O. Grade I.

27Copy pinpoint27. However, admittedly there does not exist any rule for determination of inter se seniority. H

456 SUPREME COURT REPORTS [2007] 13 (Addi.) S.C.R.

A They were governed by some office memorandums. An Office Memorandum was issued on 22.12.1959 providing for general principles for determination of seniority in the general services wherein inter alia it was stated; "5. Promotees: (i) The relative seniority of persons promoted to B the various grades shall be determined in the order of their selection for such promotions; Provided that where persons recruited initially on temporary basis are confirmed subsequently in an order different from the order of c merit indicated at the time of their promotion, seniority shall follow the order of confirmation and not the original order of merit. (ii) Where promotion to a grade are made from more than one grade the eligible persons shall be arranged in separate lists in the order of their relative seniority in their respective grades. Thereafter, D the Departmental Promotion Committee shal) select the persons for promotion from each list upon tl1e prescribed quota and arrange all the candidates selected from different lists in a consolidated order of merit which will determine the seniority of the persons on promotion to the higher grade. E Note: If separate quotas for promotion have not already been prescribed in relevant recruitment rules, the Ministries/Departments may do so now, in consultation with the Commission wherever necessary. F

6. Relative Seniority of Direct: Recruits and promotees. The relative seniority of direct recruits and of promotees shall be determined according to the rotation of vacancies between direct recruits and promotees which shall be based on the quotas of vacancies reserved for direct recruitment and promotion respectively in the G Recruitment Rules."

28Copy pinpoint28. The legal principles governing determination of inter se seniority is no longer res-integra. The question came up for consideration before a Constitution Bench ofthis Comi in the Direct recruit (supra) wherein H

R.K. MOBISANA SINGH v. KH. TEMBA SINGH 457 [SINHA, J.] the following criteria were laid down; A "(A) Once an incumbent is appointed to a post according to ruie, his seniority has to be counted from the date of his appointment and not according to the date of his confirmation. The corollary of the above rule is that where the initial appointment B is only ad hoc and not according to rules and made as a stop-gap arrangement, the officiation in such post cannot be taken into account for considering the seniority. (B) If the initial appointment is not made by following the procedure . laid down by the rules but the appointee continues in the post c uninterruptedly till the regularisation of his service in accordance with the rules, the period of officiating service will be counted. (C) When appointments are made from more than one source, it is permissible to fix the ratio for recruitment from the different sources, and if rules are framed in this regard they must ordinarily be followed strictly. (D) If it becomes impossible to adhere to the existing quota rule, it should be substituted by an appropriate rule to meet the needs of the situation. In case, however, the quota rule is not followed continuously for a number of years recause it was impossible to do so the inference is irresistible that the quota rule had broken down. \. (F) Where the rules permit the authorities to relax the provisions relating to the quota, ordinarily a presumption should be raised that there was such relaxation when there is a deviation from the quota rule. (H) If the quota rule is prescribed by an executive instruction, and is not followed continuously for a number of years, the inference -.) is that the executive instruction has ceased to remain operative.'.'

29Copy pinpoint29. Inter se seniority between the parties keeping in view the peculiar fact situation obtaining herein is required to be considered. Before applying H

458 SUPREME COURT REPORTS (2007] 13 (Addi.) S.C.R.

A the principles laid down therein to the fact of this case, we may notice a few other decisions of this Court

30Copy pinpoint30. In Sura} Prakash Gupta v. State ofJ& K & Ors., (2000] 7 SCC 561, the Rule which was applicable therein was as under:- B "53. Then comes the rule of "seniority". Seniority is to be determined by the "date of first appointment" to such Service, class or category or grade. It reads as follows: "24. Seniority- (1) The seniority of a pers~n who is subject to these Rules has reference to the service, class, category and c grade with reference to which the question has arisen. Such seniority shall be determined by the date of first appointment to such service, class, category or grade, as the case may be. Note 1. - D Interpretation - The words 'date of first appointment' occurring in the above Rule will mean the date of first substantive appointment, meaning thereby the date of permanent appointment or the date of first appointment on probation on a clear vacancy, confirmation in the latter case being subject to good work and conduct and/or passing of any examination or examinations and/ or tests: Provided that the inter se seniority of two or more persons appointed to the same service, class, category or grade simultaneously, will, notwithstanding the fact that they may assume the duties of their appointments on different dates by reason of being posted to different stations, be determined: (a) in the case of those promoted by their relative seniority in the lower service, class, category or grade; (b) in the case of those recruited direct (except those who do not join their duties when vacancies are offered to them) according to the positions attained by and assigned to them in order of merit at the time of competitive examinations or on the basis of merit H

R.K. MOBISANA SINGH v. KH. TEMBA SINGH 459 [SINHA, J.] and ability and physical fitness etc., in case no such examination is A held for the purpose of making selections; (c) as between those promoted and recruited direct, by the order in which appointments have to be allocated for promotion and direct recruitment as prescribed by the Rules. B j Note. - * * * It has to be noticed that the interpretation clause below Rule 24 is very wide and under that provision, seniority of a promotee depends on the date of the commencement of probation on a clear vacancy. Probation can be commenced in the case of a person promoted or recruited by transfer from the date of existence of a clear vacancy in the promotee/transfer quota and depending upon his eligibility, suitability based on ACRs." Having regard to the said Rule in mind this Court surveyed the precedents one way or the other to hold; "71. The direct recruits have strongly relied upon the decision in V. Sreenivasa Reddy v. Govt. ofA.P. 12 But this decision cannot be of any help to them. In that case Rule 10 and Rule 23 of the E Andhra Pradesh State and Subordinate Service Rules were referred to. It was pointed that the promotees' temporary service under Rule 10 (i.e. service rendered in a post to which the officer was not appointed according to rules), could not be counted on facts, because there was no order of retrospective regularisation. F In fact, this Court accepted that if regularised under Rule 23 of the A.P. Rules, the temporary appointees could have been regularised from an anterior date. (This Court then referred to certain rulings which said that direct recruits could not count ad hoc service rendered by them before their regular selection.) On G facts, this Court held that the Government had relaxed the Rule regarding PSC consultation but had placed the promotees below the direct recruits and this need not be interfered with. This case far from supporting the direct recruits, supports the promotees." H

460 SUPREME COURT REPORTS [2007] 13 (Addi.) S.C.R.

A Holding that decision of K. Siva Reddy v. State ofA.P., [1988] Supp. SCC 225 and Ramendra Singh v. Jagdish Prasad, [1984] Supp SCC 142 were not applicable to the fact of that case it was opined; "75. These rulings cannot be applied to the case of the promotees. In fact the principle laid down in these cases is consistent with the B principles in service jurisprudence so far as the ad hoc service rendered by direct recruits before the date of their regular selection l is concerned. Their service counts only from the date of regular appointment according to rules and any ad hoc/stopgap service rendered before regular selection cannot count for seniority." c

31Copy pinpoint31. 'Ibe Court in paragraph 77 of the judgment noticed the decisions where promotees were held to be not entitled to seek regularisation of ad hoc services in certain situations. The Court summarized its finding in paragraph 79 in the following te1ms; D "79. Summarising the position, we therefore hold that the ad hoc/ stopgap service of the promotees cannot be treated as non est merely because PSC was not consulted in respect of continuance of the ad hoc/stopgap service beyond six months. Such service is capable of being regularised under Rule 23 of the J&K (CCA) E Rules, 1956 and rectified with retrospective effect from the date of occurrence of a clear vacancy in the promotion quota, subject to eligibility, fitness and other relevant factors. There is no "rota" rule applicable. The "quota" rule has not broken down. Excess promotees occupying direct recruitment posts have to be pushed down and adjusted in later vacancies within their quota, after due regularisation. Such service outside the promotee quota cannot count for seniority. Service of the promotees which is regularised with retrospective effect from the date of vacancies within the quota counts for seniority. However, any part of such ad hoc/stopgap or even regular service rendered while occupying the direct recruitment quota cannot be counted. Seniority of the promotees or transferees is to be fixed as per quota and from the date of commencement of probation/regular appointment as stated above. Seniority of direct recruits is from the date of substantive H

R.K. MOBISANA SINGHv. KH. TEMBA SINGH 461 [SINHA, J.] appointment. Seniority has to be worked out between direct recruits and promotees for each year. We decide Point 3 accordingly. Point4 Direct recruits cannot claim appointment from date of vacancy in quota before their selection"

32Copy pinpoint32. In MK. Shanmugam and Anr. v. Union of India & Ors., [2000] 4 sec 476, direct recruitment and ad hoc appointment was distinguished stating : c " ...If the ad hoc selection is followed by regular selection, then the benefit of ad hoc service is not admissible if ad hoc appointment is in violation of the rules. If the ad hoc appointment has been made as a stopgap arrangement and where there was a procedural irregularity in making appointments according to rules and that D irregularity was subsequently rectified, the principle to be applied in that case was stated once again. There is difficulty in the way of the appellants to fight out their case for seniority should be reckoned by reason of the length of the service whether ad hoc or otherwise inasmuch as they had not been recruited regularly. E As stated earlier, the appellants were regularly found fit for promotion only in the year 1977 and ifthat period is reckoned their cases could not be considered as found by the Tribunal." It was furthermore observed; F "It is only in those cases where initially they had been recruited even though they have been appointed ad hoc the recruitment was subject to the same process as it had been done in the case of regular appointment and that the same was not a stopgap arrangement. That is not the position in the present cases at all. G Therefore, we are of the view that the conclusions reached by the Tribunal appear to us to be correct and call for no interference. However, we make it clear, as noticed earlier, that while amending the Rules of Recruitment in 1984 all those who are already in H

462 SUPREME COURT REPORTS . [2007] 13 (Addi.) S.C.R.

A service v.111 be borne in mind in adjusting the seniority amongst the promotees inter se and suitable adjustments could be made and so far as the direct recruits are concerned, their cases will go by their quota rule and the view taken by the Tribunal in this regard ~

cannot be taken exception of." B

33Copy pinpoint33. Sura} Prakash Gupta (supra) has been distinguished by this Court in Swapan Kumar Pal and Ors v. Samitabhar Chakraborty and (.

Ors., [2001] 5 SCC 581 stating; "8 ... .The next case relied upon by Mr. Rao is the case of Sura} c Prakash Gupta v. State of J&K. In the aforesaid case, on consideration of the relevant rules governing the service conditions of the Assistant Engineers of the Jammu and Kashmir Government, the Court had observed that ad hoc or temporary service of a person, appointed by transfer as an Assistant Engineer or by promotion as an Assistant Executive Engineer can be regularized through the Public Service Commission and Departmental Promotion Committee from an anterior date in a clear vacancy in his quota, ifhe is eligible and found suitable for such transfer or promotion, as the case may be, and his seniority will count from that date. The aforesaid conclusion was drawn because of the provisions of Rule 23 and Rule 15 of the Jammu and Kashmir Rules but in the case in hand, there is no provision, which has been brought to our notice, which enables the appointing authority to . regularise a promotion from an anterior date, though the suitability J

F test is held at a later date. In the absence ofany such provision in the Rules in question, the ratio of the aforesaid decision, on interpretation of the relevant rules of the Jammu and Kashmir Engineering Rules will have no application. (emphasis supplied) G

34Copy pinpoint34. To the similar effect is the decision of this Court in Md. /srail i. and Ors. v. State ofWB. and Ors., [2002] 2 SCC 306, noticing Sura} Prakash Gupta (supra) and Shanmugam (Supra) wherein it was opined that those decisions were rendered having regard to the peculiar rules H which were governing the service conditions of the employees;

R.K. MOBISANA SINGH v. KH. TEMBA SINGH 463 [SINHA, J.]

35Copy pinpoint35. We may furthennore notice that this Court in D.N Agrawal and A Anr. v. State of Madhya Pradesh and Ors., [1990] 2 SCC 553 has categorically held that ad hoc promotion without following the Recruitment Rules would not lead to any right for computation of seniority.

36Copy pinpoint36. In Santosh Kumar v. G.R. Chawla, [2003] 10 SCC 513, this B Court opined : "17. lt was contended by the learned counsel for the appellants that in view of Rule 4, the appellants are required to be regularised first and thereafter, newly appointed direct recruits are required to be appointed/confirmed. This contention has no force. This C contention has to be negatived in view of the specific finding by the High Court that direct recruits were appointed either on 16- 9-1982/17-9-1982 and the services of the appellants were regularised only on 22-9-1982." D

37Copy pinpoint37. Applying the principles of the aforementioned decisions to the facts of this case, we are of the opinion that although in tenns of the office memorandum, no retrospective effect could be given to the order of regularisation passed in favour of the promotees, as in absence of any seniority rules operating in the field, the State was required to evolve a E policy. It for its own reason did not do so.

38Copy pinpoint38. The office memorandum of 1959 was applicable in a case of this nature. In some of the cases, promotion might have been given without following the rules. When promotion is given only in the exigency of situation without following the Rules, the period cannot be counted towards seniority.

39Copy pinpoint39. If they had been given regularisation with retrospective effect, the same by itself may not be a ground to apply the said order ipso facto for detennining the inter se seniority. Seniority although is not a fundamental right but a civil right. Such a right of the direct recruits could not have been taken away without affording an opportunity of hearing to them.

40Copy pinpoint40. It was obligatory on the part of the official respondents to take into consideration that the retrospective regulariz.ation could be ~anted H

464 SUPREME COURT REPORTS [2007] 13 (Addi.) S.C.R.

A only when there exists such a rule. If rules were not followed at the time of grant of promotion, question of grant of regularization with retrospective effect would not arise. Retrospective regularization whether in terms of the directions of the High Court or otherwise, thus, although could confer other service benefits to the officer concerned, but the same cannot be held to be of any assistance for reckoning seniority with retrospective effect.

41Copy pinpoint41. It was for the DPC to recommend in regard thereto.

42Copy pinpoint42. In some of the cases, evidently the procedure has not been followed. Therefore, the question of their acquiring seniority over the direct recruits does not arise.

43Copy pinpoint43. Ibe matter, therefore, requires a closer scrutiny by the State itself As the function relating to determination of inter se seniority is that of the D State, we do not approve constitution of a committee, as has been · proposed by the learned Single Judge. It would, however, be open to the State to do so, ifit so desires. The competent authority of the State is, therefore, directed to determine the inter se seniority of the parties in view of the principles enunciated hereinbefore and apply the same to the E fact of each case. Such an exercise should be completed within a period of three months. These appeals are, therefore, disposed of with the aforementioned observations and directions with no order as to costs. N.J. Appeals disposed of.