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Allahabad High Court · body

1997 DIGILAW 1520 (ALL)

MOHAMMAD AZIM v. COMMISSIONER TRADE TAX U P LUCKNOW

1997-12-11

O.P.GARG

body1997
O. P. GARG, J. By this writ petition, under Article 226 of the Constitution, the petitioners have prayed that the respon dents be directed to regularise the services of the petitioners in the Trade Tax Depart ment, Bareilly Division, Counter and rejoinder affidavits have been exchanged. Heard Sri S. K. Varma, learned Counsel for the petitioner as well as learned Standing Counsel on behalf of the respondents. 2. The petitioners who are five in number, along with seven other persons, were initially appointed in the Bareilly Division of Trade Tax Department by the Deputy Commissioner, Administration, Trade Tax, Bareilly on the post of Clerk Typist against the substantive vacancies for a period expiring upto 28-2- 1991 on the fixed consolidated amount of salary of Rs. 950 per month. The petitioner No. 1 was posted in Badaun, while petitioner Nos. 2 and 3 were posted in Pilibhit and petitioner Nos. 4 and 5 were posted in Bareilly office of the Trade Tax Department. Subsequently, on 23-2-1991, an order, Annexure 6 to the writ petition, was passed where by the petitioners were directed to continue on their respective posts until further orders. Instead of con solidated salary of Rs. 950 per month, the petitioners were allowed to draw pay in the pay scale of Rs. 950-1500 w. e. f. 1-2-1991. The petitioners, it is alleged, are continu ing in service throughout the period from their initial appointment. They applied for regularization of their services but the department did not accede to their re quest. According to the petitioners one Vijai Kumar Srivastava, who was ap pointed on 6-11-1991, has been regularised in service while the petitioners who are senior to him with reference to the date of appointment, have been denied the benefit of regularization of their services. 3. Counter-affidavit has been filed by Desh Raj, Trade Tax Officer, Badaun. The pleas taken in the counter-affidavit to refute the claim of the petitioners are that the relief of regularization of services can not be granted by this Court in view of decision in Special Appeal No. 371 of 1995 and that the U. P. Regularization of ad hoc Appointment (on Posts Outside the Pur view of Public Service Commission) Rules, 1979 (here in after referred to as the Rules of 1979), do not apply to the case of the petitioners. 4. 4. After filing of this writ petition, an order was passed on 20th May, 1996 direct ing the respondents to decide the repre sentations of the petitioners. The petitioners made representations before the Deputy Commissioner, Trade Tax, Bareilly Region, Bareilly, who by order dated 11-7-1996 has rejected the repre sentations of the petitioners by observing that since the petitioners were not selected for appointment according to the proce dure prescribed, question of regulariza tion of their services does not arise and that the appointment of the petitioners in the pay scale of Rs. 950-1500 instead of the consolidated amount of Rs. 950 per month does not confer any right for confirmation or regularization on them in service. 5. On behalf of the petitioners, two amendment applications have been moved. The order dated 11-7- 1996 passed on the representations of the petitioners during the pendency of the present writ petition has been challenged as illegal and arbitrary. It is also prayed that the provisions of Section 4 of the Rules of 1979 be declared as unconstitutional. 6. To begin with, it may be mentioned that the question of regularization of the services of the employees is dependent upon various imponderables. Regulariza tion cannot be claimed as a matter of right. The appointing authority has to take into consideration the various factors, such as, the availability of funds, need for retention of the employee in service according to the requirements of work, past performance of the employee and the availability of the post after applying Government orders to implement the reservation policy etc. The matter came to be considered in Special Appeal No. 371 of 1995, State of U. P. and others v. Shiv Babu Garg, decided on 24-5-1996. After taking into consideration the various decisions of the Supreme Court as well as this Court, it has been laid down that the Court cannot itself examine the question of regularization of an employee on the post on which he is claiming his right for regularization. The matter may be left for decision by the appropriate authority. Now, therefore, the law is that the order of regularization of the services of an employee cannot be passed by court. The matter, of necessity, has to be left to be considered and decided by the appointing authority. The matter may be left for decision by the appropriate authority. Now, therefore, the law is that the order of regularization of the services of an employee cannot be passed by court. The matter, of necessity, has to be left to be considered and decided by the appointing authority. At best, the Court can issue a direction to the appointing authority to consider the question of regularization of the services of employee and no more. Therefore, in this writ petition, no direc tion can be issued for regularization of the services of the petitioners against the posts which they are holding on ad hoc basis since 1990. 7. Now, the moot point for considera tion is whether on legal and factual matrix petitioners have qualified themselves for being regularised in service as claimed by them. One of the submissions made on behalf of the petitioners is that one Vijay Kumar Srivastava, who is junior to the petitioners has been regularised in service and, therefore, the petitioners are entitled to be regularised in service. If for some reason, regularization of the services of Vijay Kumar Srivastava has been against the rules, or illegal, it would not confer any right or benefit on the petitioner to claim regularization of their services on that ground. In this connection, a reference may be made to the decision of the Supreme Court in Harpal Kaur Chahal v. Director Punjab Instructions, 1995 Supp. (4) SCC 706, in which it was observed that:- "it is next contended that along with the appellant two more candidates were selected and were appointed and their appointments were upheld by the High Court denial to her is violative of Article 14 of the Constitution. We find no force in contention. The view of the High Court is obviously from and the judgment rendered would not form the ground for our holding that the others who got the benefit by illegal orders will be extended in favour of other candidates though illegally appointed. Article 14 cannot be extended to legalise the illegal orders though others had wrongly got the benefit of the orders. " The petitioners cannot, in any man ner, take the advantage of the fact that the services of Vijay Kumar Srivastava have been regularised. Article 14 cannot be extended to legalise the illegal orders though others had wrongly got the benefit of the orders. " The petitioners cannot, in any man ner, take the advantage of the fact that the services of Vijay Kumar Srivastava have been regularised. The case of the petitioners has to be scrutinised with ref erence to the various provisions of Rules of 1979 and the decisions of the Supreme Court and this Court on the point. The ad hoc appointment are generally made in the exigencies of service. Where it is not possible to fill up the post by direct recruit ment according to the rules or by promo tion, ad hoc appointments are made as a stop gap arrangement so that the Govern ment work may not suffer for want of suitable hands. If an ad hoc appointee has continued for a considerable long period of service, some benefit is conferred upon him taking into consideration his past-conduct, satisfactory work and the period during which he has worked as such. In the absence of any statutory provision, regularization of the ad hoc employees was not possible and consequently to meet the situation, statutory provisions was made for regularization of the services of ad hoc employees both on the posts with in or out side the purview of the Public Ser vice Commission. In respect of Class III and IV employees the State Government notified Rules of 1979, in exercise of powers conferred under Article 309 of the Constitution of India on 14-5- 1979. Rule 4 which deals with regularization of ad hoc appointments lays down that any person who was directly appointed on ad hoc basis before 1-1-1977 and is continuing in ser vice as such on the date of the commence ment of the Rules, shall be considered for regular appointment in permanent or temporary vacancy as may be available on the basis of his record and suitability before any regular appointment is made in such vacancy in accordance with the relevant Service Rules or orders. The cut off date mentioned in the Rules as January 1, 1977 was extended and determined as 1-5-1983 by notification dated 22nd March, 1984. The Rules were again amended vide notification dated 7-8-1989 and they were made applicable to any per son directly appointed on ad hoc basis on or before 1-10- 1986. The cut off date mentioned in the Rules as January 1, 1977 was extended and determined as 1-5-1983 by notification dated 22nd March, 1984. The Rules were again amended vide notification dated 7-8-1989 and they were made applicable to any per son directly appointed on ad hoc basis on or before 1-10- 1986. Thus, the Rules of 1979, as amended in the year 1989, provide for regularization of the services of only those employees who were appointed on ad hoc basis on or before 1-10-1986. These rules came to be interpreted in two decisions of this Court the first is Arvind Kumar Yadav and others v. State of U. P. and others, 1994 (2) UPLBEC1019, in which it was held that the cut off date 1-10-1986 is arbitrary and without any rationale and, therefore, void and the cut off date will be the date of the commencement of the amended Rules, i. e. , 7-8-1989. In a sub sequent decision in Adya Prasad Misra and others v. State of U. P. and another, (1994) 3 UPLBEC1670, the matter was carried to a further length and a mandamus was issued that the ad hoc appointees who were ap pointed before 21-5-1992 shall also be considered for regularization, the moment they complete three years of service and that the ad hoc appointees who were ap pointed after 21-5-92 and if continuing in service, may also be retained and their regularization may be considered if they continued for more than three years before any regular test is held in the mean time. The impact of these two judgments was that any ad hoc appointee would be qualifying himself for being considered for regular appointment by way of regulariza tion no sooner he completes three years continuous service irrespective of the cut off date as laid down in the amended rules. Both these judgments on which reliance has been placed on behalf of the learned Counsel for the petitioners, came to be considered before a Division Bench of this Court in the case of Subedar Singh and others v. District Judge, Mirzapur and others, (1997) 1 ESC 655 Alld. Both these judgments on which reliance has been placed on behalf of the learned Counsel for the petitioners, came to be considered before a Division Bench of this Court in the case of Subedar Singh and others v. District Judge, Mirzapur and others, (1997) 1 ESC 655 Alld. It was held therein that the law laid down in Arvind Kumars case andadya Prasad Misra, case (supra), is not good law as the cut off date fixed by rule making body cannot be ex tended by means of judicial interpretation, as it would amount to legislation which does not fall with in the function of the Court. 8. The learned Counsel for the petitioner vehemently argued that the provisions of Rule 4 of 1979 rules prescrib ing the cut off date are arbitrary, illegal, irrational and unreasonable and there fore, violative of Articles 14 and 16 of the Constitution of India. This submission of the learned Counsel is obviously founded on the decisions of Arvind Kumars case and Adya Prasad Misras case (supra) which have been, as stated above, held to be not a good law. In Subedar Singhs case in which it was held that specification of a cut off date was essential, in as much as classification was required to be made be tween the employees who had rendered long service making them so eligible to be considered and those whose services were not for a period long enough to make them so eligible to be considered for regularisation. What should be the length of service is a matter of policy to be decided by the Rule Making authority. In AIR 1994 SC at page 2750, Union of India v. Sudhir Kumar Jaiswal, following and approving earlier decisions in AIR 1980 SC 21 v D. G. Gouse and Co. v. State of Kerala and AIR 1985 SC p. 1367, Sushma Sharma v. State of Rajas-than, it was held that the choice of date cannot always be dubbed as arbitrary even if no particular reason is forth-coming for the choice unless it is shown to be capri cious or whimsical in the circumstances. v. State of Kerala and AIR 1985 SC p. 1367, Sushma Sharma v. State of Rajas-than, it was held that the choice of date cannot always be dubbed as arbitrary even if no particular reason is forth-coming for the choice unless it is shown to be capri cious or whimsical in the circumstances. It was further pointed out where a point or line has to be, there is no mathematical or logical way of fixing a date precisely and so the decision of the legislature or its delegate must be accepted, unless it can be said that it is very wide of any reasonable mark. A reference was also made to 1997 it (6) SC p. 72, Amilal Bhatt v. State of Rajasthan, in which earlier decision reported in AIR 1974 SC 2349 , Union of India v. Mis. Rameshwar Match Works etc. , was followed. In the instant case, it cannot be said that three dates namely 1-1-1977, 1-5-1983 and 1-10- 1986 as incorporated by successive amendments in Rule 4 of the 1977 are in any manner picked out from a hat. Prescription of the cut off dates in Rule 4 of the Rules 1979 was necessary in order to regularise the ad hoc employees with reference to the length of their ser vice. The submission of the learned Coun sel that the prescription of particular date in Rule 4 is unconstitutional is wipe off the mark and cannot be accepted. In Subedar Singhs case (supra) the validity and constitutionality of the cut off dates in Rule 4 has been upheld. This point therefore can not be agitated again before this Court. 9. It is well settled that the ad hoc employee who have continuously worked for more than three years period on or before the cut off date cannot be regularised in service, unless they found their entry in service according to the pro cedure prescribed, meaning thereby those candidates who have entered the service from back door cannot be regularised in service even though they have put in more than three years continuous service on or before the cut off date. This aspect of the matter came to be considered in a number of cases before the Apex Court. This aspect of the matter came to be considered in a number of cases before the Apex Court. In State of Haryana v. Piara Singh and others, AIR 1992 SC p. 1230, it was observed that where a temporary or ad hoc appointment is continued for long the Court presumes that there is need and warrant for a regular post and accordingly directs regularisation. In paragraph 12 of the said decision Supreme Court said that the Court must, while giving direction for regularisation, act with due care and caution. It must first ascertain the relevant facts and must be congnizant of several situations and even tualities that may arise on such directions. A practical and pragmatic view has to be taken in as much as every such direction not only tells upon the public exchequer but also has the effect of increasing the cadre strength of a particular service or category. In clause (e) of paragraph-12 of the said case, it was observed that many appointments may have been made ir regularly in the sense that the candidates were neither sponsored by the Employ ment Exchange nor were they appointed after issuing a proper advertisement call ing for applications. In short, it may be a back door entry. A direction to regularise such appointments would only result in encouragement to such unhealthy prac tices. In paragraph-25 Thirdly, it was ob served that even where an ad hoc or tem porary employment is necessitated on ac count of the exigencies of administration, he should ordinarily be drawn from the employment exchange unless it cannot brook delay in which case the pressing cause must be stated on the file. If no candidate is available or is not sponsored by the employment exchange, some ap propriate method consistent with the re quirements of Article 16 should be fol lowed. In other words there must be a notice published in the appropriate man ner calling for applications and all those who apply in response thereto should be considered fairly. These observations have been made in order to maintain fairness and impartiality in public life and to reduce the chances of picking up a person to bestow favour upon him, for variety of reasons. 10. In a subsequent case reported in it 1993 (6) SC p. 593, v. and K. Public Service Commission etc. v. Dr. These observations have been made in order to maintain fairness and impartiality in public life and to reduce the chances of picking up a person to bestow favour upon him, for variety of reasons. 10. In a subsequent case reported in it 1993 (6) SC p. 593, v. and K. Public Service Commission etc. v. Dr. Narinder Mohan and others, the Supreme Court after reviewing a number of authorities observed that the "court did not appear to have intended to lay down as a general rule that in every category of ad hoc appoint ment by regularisation be made. In E. Ramakrishnan and others v. State of Kerala and others, 1996 (10) SCC 565 , the Supreme Court rejected the claim of the petitioners for regularisation made on the ground that they had been continuing in service for more than 14 years on ad hoc basis and held that the candidates who were found eligible and selected and recommended for appointment by the Public Service Commission were required to be appointed. In another case reported in it 1996 (6) SC p. 125-Dr. Surinder Singh Jamwal and another v. The State of Jammu and Kashmir and others, it was observed by the Supreme Court that the settled legal position now is that the recruitment to the service should be governed by the appropriate statutory rules. Under the rules the regular recruitment to the posts shall be made by the Public Service Commis sion. Consequently, the ad hoc appoint ments would be only temporary appoint ments de hors the rules, pending regular recruitment without conferring any right to regularisation of service. In Ashwani Kumar and others v. State of Bihar and others, it 1997 (1) SC at p. 243, the Court observed that the regularisation would re quire one precondition that the initial entry of such an employee must be made against an available sanctioned vacancy by following the rules and regulations governing such entry. Where an entry of an employee is tainted from the very begin ning, question of regularisation such an illegal entrant would never survive for consideration, however, competent the recruitment agency may be. 11. In the backdrop of the above legal position now let us examine the case of the present petitioners for regularisation. The petitioners were appointed initially on contractual basis at consolidated amount of Rs. 950 per month. 11. In the backdrop of the above legal position now let us examine the case of the present petitioners for regularisation. The petitioners were appointed initially on contractual basis at consolidated amount of Rs. 950 per month. They have been allowed to continue till further orders on ad hoc basis by order dated 23-2-1991 (Annexure-6 to the writ petition) and have further been allowed the benefit of running pay scale of Rs. 950-1500 with effect from 1-2-1991. The learned Counsel pointed out that the petitioners are enjoy ing various privileges as are available to regular employees such as deduction of provident fund, encashment of leave etc. and therefore, for all practical purposes, the petitioners are being treated as regular employees. Even if the petitioners have been allowed salary under the regular scale of pay and privileges as mentioned above, the fact remains that they con tinued to be the ad hoc employees. The petitioners were appointed after the cut off date i. e. 1-10-1986. The Rules of 1979 give right of regularisation only to those employees appointed on ad hoc basis on or before 1-10-1986. The petitioners cannot, therefore, take the advantage of the provisions of Rules 1979 which deal with the question of regularisation of services of ad hoc employees appointed on or before l-10-i;/86. Moreover there is no evidence worth the name on record to in dicate that the petitioners were appointed as a result of some selection held and after processing the applications which may have been received in pursuance of any advertisement or notification. Their names were also not sent by the Employ ment Exchange. The petitioners were picked up for the purposes of appoint ment initially on contractual basis and later on ad hoc basis in regular scale. The petitioners, therefore, entered service through the back door. In view of the authoritative pronouncements of the Apex Court as mentioned above the illegal entry of the petitioners in service cannot be legitimatized or regularised through the agency of the Court. The repre sentations of the petitioners have, there fore, been rightly rejected by order dated 11- 7-1996. 12. The petitioners cannot, there fore, be considered for regularisation. They continued to be ad hoc employees liable to be replaced by the employees appointed on regular basis after due selection in accordance with relevant rules. 13. The repre sentations of the petitioners have, there fore, been rightly rejected by order dated 11- 7-1996. 12. The petitioners cannot, there fore, be considered for regularisation. They continued to be ad hoc employees liable to be replaced by the employees appointed on regular basis after due selection in accordance with relevant rules. 13. In the result, for the reasons stated above, the petition fails and is ac cordingly dismissed. However, the petitioners shall continue in service on ad hoc basis till they are replaced by the in cumbents who may be appointed on regular basis in accordance with the relevant rules of recruitment. The petitioners shall also be permitted to com pete with other candidates at the regular test examination for recruitment. If all the petitioners or any one of them has become or becomes overage at the time of recruit ment, the competent authority may, in its discretion, grant relaxation in the age of the petitioners. Petition dismissed .