Holding

Seniority of direct recruits is to be reckoned from the date of appointment after training, and promotions exceeding the one‑third quota are valid where the Government has expressly decided otherwise.

Summary

The case concerned the seniority of a directly recruited officer (Prakash Chandra Misra) in the Orissa Forest Service Class II vis‑à‑vis promotees who were appointed during his training period. The petitioner argued that his seniority should be counted from the date of recruitment (1979) and that promotions exceeding the statutory one‑third quota were illegal. The Tribunal held otherwise, treating him as a 1979 recruit and ordering his promotion within the two‑thirds direct‑recruit quota. The Supreme Court examined the meaning of "recruitment" and "appointment" under the 1959 Rules, held that seniority of direct recruits is to be reckoned from the date of appointment after training, and that the period of training does not count as government service. It also held that the Government had expressly decided to exceed the one‑third quota, making such promotions valid. Consequently, the Court set aside the Tribunal’s order and allowed the appeals.

Issues considered

Whether seniority of direct recruits in the Orissa Forest Service Class II is to be calculated from the date of recruitment or from the date of appointment after training.
Whether the one‑third quota for promotions under the 1959 Recruitment Rules is mandatory or can be overridden by a Government decision.

Legislation cited

General Clauses Act, 1897s. 6

Subjects

recruitmentappointmentseniorityquotaforest servicedirect recruitpromotionstatutory interpretationtraining perioddeeming clause

Judgment

PRAFULLA KUMAR SWAIN ETC. ETC. A
v.
PRAKASH CHANDRA MISRA AND ORS.

JANUARY 18, 1993

[L.M. SHARMA, CJ., S. MOHAN AND S.P. BHARUCHA, JJ.] B

Orissa Forest Service Class JI Recruitment Rules, 1959--R.ules 5, 9, 16,
~ .,- 24 read with Regulation 12 of Regulation I-Direct Recruit--2 years of train-
ing-Whether to count as service under Govemment--'Recruitment' means
whether 'appointment"-Seniority of direct recruits-Whether to be reckoned C
from the date of recruitment.
Orissa Forest Service Class III Recruitment Rules, 1959-Rule 9-f'osts
of Assistant Conservators-Filling up bypromotion and recruitment-l'romo-
tions to promotees in excess of quota-Whether justiciable.
_i_.. D
Orissa Forest Service Class III Recruitment Rules, 1959--R.ules
16,2.f-Recruitment under 1959 Rules-Whether 1984 Rules and/or Indian
Forest Service (Appointment by Promotion) Regulations, 1966 applicable.

Orissa Forest Service Class III Recruitment Rules, 1959-Rules 5, 9-
Recruitment in 1981-<iradation List of 1985-Challenging in 19811-Whether E
proper.

The Orissa Public Service Commission through an advertisement
daed 8.10.64 Invited applications for admission of candidates to a com·
petitive examination for seleetion to the posts of Orissa Forest Service
Class II Service. F

The 18 selected candidates were sent for training at the Indian
Forest CoUege during the year 1965-67. One of the candidates, who suc-
cessfully completed the traiDing was appointed to Class II Service. He
filed a writ petition in the High Court, as he was asslgued in the list of G
gradation a rank junior to the promotees, who were confirmed by Service
Commission after his recruitment.

The High Court held that the recruitment to class II Service was
complete only after successful completion of two years' training in the
Forest College. The appeals by special leave filed against the High Court's H
241
242 SUPREME COURT REPORTS (1993] 1 S.C.R.

A Judgment were dismissed by this Court.
In 1979, the respondent No. 1 (in all the present appeals) was
directly recruited to the Orissa State Forest Service Class II by the State
Commission. He was appointed as an Assistant Conservator of Forests,
after his completion of training for two years at the Forest Service College.
B j=

Respondent No. 1 moved the Administrative Tribunal challenging '
the seniority or the Forest Rangers, who were members or the Orissa
Subordinate Forest Service and were promoted as Assistant Conservators
of Forests, when the respondent was undergoing his training.
c Respondent contended before the Tribunal that the seniority or
direct recruits vis-a-vis the promotees required to be decided on the basis
of the Orissa Forest Service Class II Recruitment Rules, 1959; that his
services should be reckoned from the date of recruitment itself and not
from the date or actual appointment; that the exclusion or the period or
D two years' training from the purposes of reckoning the seniority was
illegal; and that the appointment of the promotees in excess of the quota
prescribed by the Rules and in the absence of any specific order of
Government providing otherwise was illegal.

E Allowing the petition, the Tribunal held that the respondent No.1 (In
the present appeals) was entitled to be treated as a direct recruit of 1979 )·<
and he be confirmed and promoted on being direct recruit of 1979 and his
seniority to be fixed on the basis of being a direct recruit of 1979 within
the 2/3rd quota for direct recruits.

F The present appeals by special leave were preferred by the ag-
grieved parties against the judgment of the Tribunal.

The appellant in SLP (C) No. 1604 of 1992 submitted that the
respondent No.1 was selected for undergoing superior Forest Service
G Course at the Forest Service College in 1979; that having regard to the
terminology of the order which stated, 'he was selected', it could not be
held that he could lay a claim to the post; that the Tribunal bad gone •
wrong in its interpretation of the rules that having held !bat both the
direct recruits as well as the promotees were to undergo probation for a
period of two years, the period of training for the direct recruit could not
H count as service; that the ratio of 2/3rd and 1/3rd between direct recruits
PRAFULLA SWAIN v. PRAKASH MISRA 243

and proDiotees did not apply, if the Government provided otherwise; that A
the Civil List corrected upto 1982 was published in 1985; and that the
judgment of the Tribunal resulted In unsettling -the settled matters, hence
same to be reversed.
-· The State adopted the arguments of the appellant in SLP (C) No.
1604/92. B

The respondent No.l submitted that recruitment was different from
appointment; that when an officer was recruited to CtaSs II Service if did
not mean that only from the date of appointment bis seniority was to be
reckoned; that the argument that the period of training to be excluded C
merely because both the direct recruits as well as the promotees undergo
probation was untenable; that when roles specifically prescribed the quota
as 2/3rd and l/3rd, the Government could not wriggle out of the situation
that a saving provision was made which was factually not so In this case;
that tlae point relating to lacbes which was never argued before the
Tribunal, coaid. not be raised before the Court. D
•
Allowing the appeals, this court,

HELD: 1.01. The term "recruitment"connotes and clearly signifies
enlistment, acceptance, selection or approval for appointment. Certainly,
this is not actual appilintment or posting in service. In contradistinction, E
the word "appointment" means an actual act of posting a person to a
particular office. [253E)

1.02. Recruitment is just an initial process. That may lead to even-
tual appointment in service. But, that cannot tantamount to an appoint-
ment. No doubt, Rule 5 talks of recruitment to Class II Service. [253E) F

l.D3. Nowhere in the Recruitment Rules of 1959 it is specified that
the services of a direct recruit under the Government shall be reckoned
from the date of selection in the competitive examination. On the contrary,
Regulation lZ(c) is very clear that the period of training is not to be G
reckoned as Government service. [253F)

1.114. Under Regulation 12 the finally selected candidates are re-
quried to undergo two years training. During the period of pendency &
consolidated monthly allowance of Rs. 150 as stipend is paid. Under
clause (b) or that Regulation he is required to execute a bond provided for H
244 SUPREME COURT REPORTS [1993) 1 S.C.R.

A in Appendix A. Regulation 12 (c) in unmistakable terms says the period
of training will not count as service under Government. Such service will
count only from the date of appointment to the service after successful \..,_ -·
completion of the course of training. [2538-C]

1.05. After the successful completion of training when the appoint-
B ment order is issued the direct recruits are put on probation. Similar is
in the case of the promotees. Both of them undergo probation. [253G]

1.06. The seniority of direct recruits will have to be reckoned only from
the date of appointment and not from the date of recruitment. [253G]

c 2.01. The Government had clearly taken a decision to increase the
number of posts to be lilied up by promotion in excess of the I/3rd of total
posts in the cadre on administrative grounds connected with nationalisa-
tion of Kendu Leaf Trade in 1972-73 in the interest of public due to non
availability of direct candidates trained in the Indian Forest College,
D Dehradun. [256G]

2.02. It is not correct lo say that Government have decided that the
quota of direct recruitment which will be encroached upon by the promolees
will be released as and when direct recruits are available. [256H)

E 2.03. lience, to contend that the promotees would obviously have to
yield to direct recruits who came in subsequently within their quota and
would consequently also not be eligible for seniority above direct recruits,
is untenable. [257D]

2.04. The promotions given in excess of 1/3rd quota are valid. There
F is no justification to push down the promotees in seniority. The promotion
in excess of the prescribed quota was necessitated by the exigencies and in
the intersest of the public. It is supported by a conscious decision of the
Government which is permissible under Rule 5(3). [258D)

Keshav Chandra Joshi and Ors. v. U11io11 of India, (1990) Supp. 2
G
SCR 573 at page 586, distinguished.

Direct Recruit Class II Engin.eering Officers' Association and Ors. v.
State of Maharashtra and Ors., [1990] 2 SCR 900 at page 93S; SLP (C) No. -\-
1624 of 1988 • Disposed of on 18.01.89; C.A. Nos. 2051-52 of 1974 -
H Disposed of on 7.1.88, referred to.
... --.../

PRAFULLA SWAIN v. PRAKASH MISRA 245

3.01. By the operation of deeming clause it only enables appoint- A
ments made under 1959 Rules to be continued under 1984 Rules. Certain-
-J ly, by the repeal of 1959 Rules it cannot mean all those appointments
cease. Nor again, the substantive provision of Rule 16 would govern.
'Therefore, Rule 24 has no application. [256A-B)

3.02. Since the appointments in question have been made under 1959 B
Rules, 1984 Rules will be inapplicable. The 1984 Rules, came into force
only when they were published in the Official Gazette on December 21,
~~ 1984. Explanation under Rule 16 is a substantive provision. Therefore, it
cannot be retrospective. As regards Rule 24, the proviso clearly states that
the Rules cannot be construed as affecting on invalidating the appoint- c
meets already made. Therefore, if any right has been acquired or any
privilege had accured that would remain unaltered. Therefore, tbese ap-
poiotmeots which are governed by the 1959 Rules will continue not-
withstanding the repeal. [254H, 25SA-B)

3.03. Since the appointments in question are regulated under Orissa D
Forest Service Class II Recruitment Rules, the Indian Forest Service
(Appointment by Promotion) Regulations of 1966 have no application. The
• Orissa Rules were framed under proviso to Article 309 of the Constitution
or India and have statutory and binding force. (258FJ

G.P .Singh: Principles of Statutorv Interpretation, Fourth Edition 1988,
E
~·"' at page 208, refelftd to.

4.01. There have been laches on the part or the direct recruits in
seeking the remedy. When the list was published in 1985 nothing prevented
them to approach earlier. This is the point to be put against them. [258G) F
__ ....,. 4.02. The gradation list has been in operation over several years.
. There is no reason to tmsettle the settled position. (256E)

Direct Recruit Class II Engineering Officers' Association v. State of
Maharashtra and others, [1990) 2 SCC 715, referred to. G
CIVIL APPELLATE JURISDICTION: Civil Appeal Nos. 185-187
of 1993.
'
--~
From the Judgment and Order dated 5.8.1991 of the Orissa Ad-
ministrative Tribunal, Bhubanesnwar in 0.A. No. 679 of 1988. H
246 SUPREME COURT REPORTS [1993] 1 S.C.R.

A BA. Mcihanty, A Mariarputham, Mrs. Aruna Mathur, Raju Rama-
chandran and A.K. Panda for the Appellants.
,,_
Shanti Bhushan, Prashant Bhushan, P.N. Misra, P .. Gour, R.P.
Wadhwani and C.N. Sreekumar for the Respondents.

B The Jndgment of the Court was delivered by

MOHAN, J. Leave granted in all the matters.
v
All these appeals can be dealt with under a common judgment since
they are directed against the judgment and order dated August 5, 1991
c passed by the Orissa Administrative Tribunal, Bhubaneshwar in Original
Application No. 679 of 1988.

Prakash Chandra Misra (Respondent 1. in all these appeals) was
directly recruited to the Orissa State Forest Service Class II by the Orissa
A,
Public Service Commission in the year 1979. After completion of training
D for two years at Forest Service College, Burnihat, Assam he was appointed
as an Assistant Conservator of Forests. He moved the Administrative
Tribunal challenging the seniority of the Forest Rangers who were mem- •
bers of Orissa Subordinate Forest Service and were promoted as Assistant
Conservator of Forests, between his recruitment and the joining of service
E after training. According to first respondent, the promotees who were )-<
promoted in the years 1981 and 1982 ought to have been assigned a place
below him as per recruitment rules. The seniority of direct recruits vis-a-vis
the promotees required to be decided on the basis of the Orissa Forest
Service Class II Recruitment Rules, 1959.

F It was further urged that he was recruited in the year 1979 through
Public Service Commission. He had. to undergo trai.ning for two years and )..._
thereafter he was appointed in the year 1981.

Therefore, the short question was whether the respondent was to be
G assigned seniority from the year 1979 (the year of recruitment) or from the
year 1981 (the year of appointment). The Tribunal observed that Rule 9(a)
of 1959 Rules read with Rule 6 would point out that the promotee officers
were to be on probation for a period of two years like the direct recruits.
Such direct recruits were also sent for training to the Forest Training
College. The 1959 Rules used the word 'recruited', the 1984 Rules used
H the word "appointed". These words must be assigned proper meaning.
PRAFULLA SWAIN v. PRAKASH MISRA [MOHAN, J.) 247

~v-
Inasmuch as the direct recruits were to be treated as seniors to promotees A
'en bloc' the first respondent must be treated as a recruit of 1979 and ought
to be treated as senior to promotees.

The next question that came up for consideration was as to the
application of quota rule. On this, the Tribunal held that both in the 1959
Rules as well as in the 1984 Rules, the promotees and direct recruits will B
be in the proportion of 1/3rd and 2/3rd. In the present case, 1959 Rules
~~ being applicable there was no doubt that promotees have substantially
encroached upon the quota for direct recruits. In view of that, promotions
which have been made more than the quota prescribed in the rules have
to be either adjusted against future vacancies in the promotion quota or c
reverted. Such promotions beyond the presrribed quota are illegal.

In view of these findings, the Tribunal held that the first respondent
Was entitled to be treated (i) as a direct recruit of 1979 and (ii) he shall be
·~
confirmed and promoted on the basis of being direct recruit of 1979. His
seniority was to be f1J<ed on the basis of being a direct recruit of 1979 within D
the 2/3rd quota for direct recruits. These directions were to be imple-
mented within six months from the date of the order. On these terms, the
petition of the first respondent came to be allowed.

·- ..\., Aggrieved by this judgment, SLP (C) No. 615 of 1992 has come to
be preferred by Prafulla Kumar Swain, a promotee (Respondent No. 91 E
before the Orissa AdminiStrative Tribunal).

SLP (Civil) No. 1604 of 1992 has come to be preferred by Bijay
Kishore Mohanty and 10 others (respondents before the Orissa Ad-
ministrative Tribunal).
F
_......._ The State has preferred SLP (C) No. 4186 of 1992.

Mr. Raiu Ramachandran, learned counsel for the appellant in SLP
( C) No. 1604 of 1992 would submit that the first respondent was selected
for undergoing superiod Forest Service Course at the Forest Service Col-
G
lege, Burnihat, Assam in the year 1979. Having regard to the terminology
of the order which says "he was selected", it cannot be held that he could
---+-- lay a claim to the post. The Orissa Forest Service Class II Recruitme.nt
Rules, 1959 govern the case in question.

The Tribunal had gone wrong in its interpretation of the various H
•

248 SUPREME COURT REPORTS [1993) 1 S.C.R.

A rules. First of all, it is incorrect to bold that they are merely administrative
instructions. On the contrary, they are rules framed under proviso to
Article 309 of the Constitution of India, as a result of which, they have
statutory force. Having held that both the direct recruits as well as the
promotees undergo probation for a period of two years, prcperly speaking,
the period of training for the direct recruits could not count as service.
B That is precisely what is stated in clause (c) of Regulation 12. If under the
said Regulation the appointment to service is to commence only after the
successful completion of training there is no justification whatever to
conclude that the date of recruitment could be the relevant date for the
purposes of reckoning the seniority. Recruitment in the submission of the
C learned counsel would merely mean enlistment or selection. That is why
Regulation 13 says the '"selected candidates". Even Rules 9 bas not been
appreciated in its proper perspective.

As regards the ratio of 2/3rd and 1/3rd between direct recruits and
D promotees the relevant rule that is applicable is Rule 5(3). That sub-rule
contains a provision: "Save as otherwise decided by Government". If,
therefore, it bas been otherwise provided by the Government, this ratio of
2/3rd and 1/3rd does not apply. In other words, there is overriding power
vested in the Government. Hence, the ratio is flexible and contemplates a
departure whenever the Government otherwise decides. Here again, the
E Tribunal has go"e wrong. In Direct Recruit Class II Engineering Officers'
Association and Ors. v. State of Maharashtra and Ors., (1990] 2 SCR 900 at
page 938 this Court has taken the view that where the rules permit the
authorities to relax the provisions relating to the quota, ordinarly a
presumption should be raised that there was such relaxation when there is
F a deviation from the quota rule. In any event, the placement of Respon·
dents 42 to 94 as per Civil List corrected upto 1982 wa. published in the
year 1985 by the State Government. They are the promotees from amongst
the various Rangers in Subordinate Service Class II as Assistant Conser-
vator of Forests in 1980. This was at a time when the first respondent was
undergoing training at Burnihat, Assam. If really, therefore, the gradation
G list was published as early as 1985, there is absolutely no justification for
the first respondent to approach in the year 1988. The judgment of the
'.fribunal has resulted in unsettling. the settled matters. For these reasons,
it is prayed that the order of the Tribunal may be reversed.

H Mr. A.K. Panda, learned counsel for the State adopts the arguments
PRAFULLA SWAIN v. PRAKASH MISRA [MOHAN, J.] 249

of Mr. Raju Ramchandran, learned counsel for the appellant. A
Mr. Shanti Bhushan, learned cousel appearing for the first respon-
dent would submit that recruitment is different from appointment. The
definition of the service is contained under Rule 3( e) which states "service"
means Orissa Forest Service Class II. The service consists of Officers of
Class II who are designated as Assistant Conservator of Forests. Rule 5(c) B
talks of recruitment to Class II. In sub-rule (a) a reference is made to
Regulation. What is contemplated hereunder is nothing more than the
competitive examination prescribed under Regulation. Therefore, Regula-
tion 12 cannot be pressed into service. When an officer is recruited to Class

- II Service it does not mean that only from the date of appointment his
seniority is to be reckoned. The very fact that his recruitment to the service
c
is enough. The argument of the other side that the period of training will
have to be excluded merely because both the direct recruits as well as the
promotees undergo probation is untenable. The question is, whether the
direct recruits who are definitely superior could be pushed lower down to
the promotees. In Service Law the direct recruits are always treat~d on a D
better footing than the promotees.

Even though the relevant years of recruitment and promotion of
- .cl. persons involved are essentially of the years 1979 to 1984, yet it is 1984
Rules which will govern. E
Rule 24 of the 1984 Rules contains the repeal and saving clauses.
That says that all the officers who were appointed prior to the repeal shall
be deemed to have been appointed under the provisions of 1984 Rules. If
that be so, the aforesaid Explanation to Rule 16 must apply. Thus it is clear
as on today the seniority by the 1984 Rules. The same has clearly provided F
, -· """'-· that the date of appointment of direct recruits for the purposes of seniority
will be deemed to be 2 years prior to the date of appointment to a working
post. Since the normal period of training is 2 years this cannot but mean
that the date of appointment of direct recruits for the purposes of seniority
will be the date of selection. If the seniority is not a vested right it is G
well-open to the Government to alter the same by making a departure from
1959 and providing for the same in the amended 1984 Rules.

Learned counsel draws our attention to Indian Forest Service (Ap-
pointment by Promotion) Regulations of 1966. In the said Regulations,
Regulation 5 in its Explanation II states that in computing the period of H
250 .SUPREME COURT REPORTS [1993) 1 S.C.R.

A continuous service the period of training which an officer had undergone "'-. _.
is to be included. If that is the intention for Grade I Service, certainly a
different intention cannot be spelt out under the 1959 Rules for Grade II
Service. This is also evident when the 1984 Rules are looked at. There the
rules clearly lay down in Rules 16 in its Explanation that the training period
B is not to be excluded.

· When rules specifically prescribe the quota as 2/3rd and l/3rd the
Government cannot wriggle out of the situation that a saving provision had
been made which is factually not so in this case. For this purpose, the
Government has relied upo.n the proceedings held on 5.1.80 and 7.1.80. The
C proceedings of Departmental Promotion Committee will not constitute the
Government order. All Government orders must be issued under the
signature of the Minister according to the Rules of Business. In the present
case, no such order of the Minister regarding the alteration of quota is
produced. The statutory rules lay down a clear legislative policy with regard
D to fixation of quota so that the brightest talent be made available for the
service. As to what would be the consequence of violating a statutory rule
has ·come to be laid down in Keshav Chandra Joshi and Ors. v. Union of
India, [1990) Supp. 2 SCR 573 at page 586. That ratio squarely applies to
the facts of the case.

E The point relating to !aches was never argued before. the Tribunal.
Therefore, the appellant cannot be allowed to argue at this stage.

We will now proceed to set out the necessary factual background.
The Orissa Public Service Commission through an advertisement dated
F 8.10.64 invited applications froni open market for admission of candidates
to a competitive examination for selection to the posts of Orissa Forest ~ ..
Service Class II service. 18 candidates were selected. They were sent for
training at Indian Forest College, Dehradun during the year 1965-67. Only
on successful completion of the training they could be appointed to Class
G II Service. One of the candidates, who was successful in completion of
training and who received the posting order '1:33/67 came forward with a
writ petition before the Orissa High Court that he had been assigned in
the list of gradation a rank junior to the promotees who were confirmed
by Service Commission after the recruitment of the petitioner. The scope
of 1959 Rules came up for consideration and the High Court concluded
H that the recruitment to Class II Service was complete only after successful
PRAFULLA SWAIN v. PRAKASH MISRA [MOHAN, J.) 251

completion of two years' training in the Forest College. Relief was granted A
on that basis. That came up in appeal to this Court in Civil Appeal Nos.
2051-52 of 1974 State of Orissa v. Manoranjan Rath & Ors. By an order
dated 7th of January, 1988, finding that there was no ground to interfere
with the judgment of the High Court, the appeals came to be dismissed.

While the matter stood thus one of the directly recrujted officers B
,! (Prakash Chandra Misra, respondent No.l) filed a petition before the
Tribunal challenging the seniority. He contended that the promotees who
were promoted in the year 1981- 82 ought to have been assigned a place
lower than him as per recruitment .rules. Two main contentions were:

1. His services should be reckoned from the date of recruitment itself C
and not from the date of actual appointment. Therefore, the exclusion of
the period of two years' training for the purposes of reckoning the seniority
was illegal.

2. The promotees had been appointed in excess of the quota which D
the rules had prescribed. There is no specific order of Government provid-
ing otherwise.

The Tribunal accepted these contentions and held that the petitoner
before it being a direct recruit of the year 1979 must be treated as such and
had to be confirmed and promoted on the basis of being a direct recruit E
of the year 1979. This should be done within the 2/3rd quota for direct
recruits. Accordingly the petition was allowed. It is under these circumstan-
ces, special leave petitions have come to be preferred. Having regard to
the arguments two points arise for our determination:

( 1) Whether the direct recruits are to be considered as recruited in F
the year in which they were selected by the Service Commission and sent
for training into the Forest College or in the year in which they were
actually appointed to a working post on completion of training?

(2) Whether there was a quota fixed for promotees in the Orissa G
Forest Service during the relevant years .

.,...__ Even at the outset, we may point out that the Tribunal has grossly
erred in holding that the Orissa Service Class II Recruitment Rules of 1959
are mere administrative instructions. On the contrary, these rules were
framed under the proviso to Article 309 of the Constitution and they are H
/
.
252 SUPREME COURT REPORTS [1993] 1 S.C.R.

A statutory in character.

Section 3( e) of 1959 Rules says "Service' means the Orissa Forest
Service Class II. Rule 5 reads as under:

"5. (1) Recruitment to Class II service shall be made -
B
(a) by direct recruitment on the result of competitive examina-
tion as per Regulation-I appended to th~ rule;

(b) by promotion as per t~e Regulation II appended to this
rule governing promotions to the Orissa Forest Service, Class
c II;

(2) Government shall decide from time to time the number of
vacancies in class II Service to be filled by direct recruitment
and by promotion.

D (3) Save as otherwise decided by Government, number of posts
of the service filled up by promotion shall not exceed one-third
of the total number of such posts in the cadre."

Rule 9 is as follows:

E "9( a) When officers are recruited by promotion and by direct
recruitment during the sanie year the directly recruited mem-
bers shall be considered senior to the promoted members
irrespective of their dates of appointment.

(b) In case of promotion, seniority may be determined in
F accordance with the positions the promoted officers held in the
recommendation of Public Service Commission made accord-
ing to merit.

(c) In case of direct recruitment, seniority may be determined
according to the achievements in the examination in the Forest
G
College."

Besides these rules there are also Regulations dealing with direct
recruitment. It may be stated that the Regulations prescribe the condition
of elegibility (Regulation 1(2)), educational qualification (Regulation 1(6)),
H written test by means of a competitive examination (Regulation I 8(a)) and
PRAFULLA SWAIN v. PRAKASH MISRA [MOHAN, J.] 253

a viva voce test. The candidates are to be summoned for viva voce test on A
securing the minimum qualifying marks prescribed by the Commission.
Thereafter the Commission prepares a list of successful candidates
provided they are found fit in the physical test as prescribed under Regula-
tion 1(5). The list of successful candidates is to be forwarded to the
Government for approval.
B
Regulation 12 is important for our purposes. Under that Regulation
the finally selected candidates are required to undergo two years training.
During the period of pendency a consolidated monthly allowance of Rs. 150
as stipend is paid. Under clause (b) of that Regulation he is required to
execute a bond provided for in Appendix A. Regulation 12{c) in unmistak- C
able terms says the period of training will not count as service under Govern-
ment. Such service will count only from the date of appointment to the service
after successful completion of the course of training. {Emphasis supplied). We
must give full meaning and effect to this Regulation.

At this stage, we will proceed to decide as to the meaning and effect D
11 1
of the words recruitment1 and "appointment". The term recruitment1
11 1

connotes and clearly signifies enlistment, acceptance, selection or approval
for appointment. Certainly, this is not actual appointment or posting in
service. In contradistinction the word 11appointment" means an actual act
- ·""-.
of posting a person to a particular office. E

Recruitment is just an initial process. That may lead to eventual
appointment in the service. But, that cannot tantamount to an appointment.
No doubt, Rule 5 talks of recruitment to Class II Service. We consider
these are two sources of recruitment. Nowhere in the Recruitment Rules
of 1959 it is specified that the services of a direct recruit under the F
Government shall be reckoned from the date of selection in the competitive
examination. On the contrary, Regulation 12{c) is very clear that the period
of training is not lo be reckoned as Government service. It is admitted
before us that after the successful completion of training when the appoint-
ment order is issued the direct recruits are put' on probation. Similar is in G
the case of the promotees. Both of them undergo probation. Therefore, in
the light of these provisions it is not possible for us to accept the contention
advanced on behalf of the direct recruits that their seniority must be
reckoned from the date of their recruitment.

This is why Mr. Shanti Bhushan, learned counsel for the direct H
254 SUPREME COURT REPORTS (1993) 1 S.C.R.

A recruits, respondents, would urge that 1984 Rules would govern. Rule 16
in Explanation provides thus:

'Explanation - For the purpose of clause (a), the year of
appointment of direct recruits shall be deemed to be the year
arrived at after deducting two years from the date of successful
B completion of the training in the Forest College.'
\

He would urge that in view of Rule 24 all the appointments must be
deemed to have been made under these Rules. Rule 24 reads thus:

c '24. All rules and orders corresponding to these rules and in
force immediately before the commencement of these rules are
hereby repealed:

Provided that nothing in these rules shall be construed as
affecting or invalidating the appointments already made or
D orders issued in accordance with the provisions of any rules or
orders in force immediately before the commencement of these
rules and that all such appointments and orders shall continue
in force and shall, as far as may be, be deemed to have been
made and issued under the appropriate provisions of these
E rules:

Provided further that Government may, by order, direct that
any of the provisions of these rules shall not apply to the
Officers already appointed under the rules and orders in force
immediately before the commencement of these rules or shall
F apply to them with such modifications as the Government may
specify in that order."

Therefore, according to him, the benefit of Explanation to Rule 16
quoted above musi apply. We find it impossible to accept this contention
G for the following reasons:

·i. Since the appointments in question have been made under 1959
Rules, 1984 Rules will be inapplicable.

2. The 1984 Rules came into force only when they were published in
H the Official Gazette on December 21, 1984.
,
PRAFULLA SWAIN v. PRAKASH MISRA [MOH~, J.] 255

3. Explanation under Rule 16 is a substantive provision. Therefore, A
~ it cannot be retrospective.

4. As regards Rule 24, the proviso clearly states that the Rules cannot
be construed as affecting or invalidating the appointments already made.

Therefore, if any right has. been acquired or any privilege had ac· B
crued that would remain unaltered. Therefore, these appointments which
are governed by the 1959 Rules will continue notwithstanding the repeal.
Clauses (a) and (e) of Section 6 ofthe General Clauses Act, ;1897 also point
this positiQI!~

'6. Effect, of repeal: Where this Act, or any (Central Act) or C
Regulation made after the comnieneemedt of this Act, repeaIS
any enactment hitherto made or-hereafter to be made, then,
unless a different intention appears, the repe31 shall not •
·~ ..
(a) revive anything not in· force or existing at the time at which D
the repeal takes effect; or

(b) .....

(c) .....

-: " (d) .....
E

(e) effect 'any investigation, legal proceeding or remedy. in
respect of any such right, privilege, obligation, liability, penalty,
forfeiture or punbishment as aforesaid.'
F
Coming to the deeming clause, that creates a legal fiction; the Court
is to ascertain for what purpose the fiction is created. In Justice G.P. Singh
Principles of Statutory Interpretation (Fourth Edition 1988) at page 208 it is
stated thus:

'As was observed by James, LJ. : 'When a statute enacts G
that something shall be deemed to have been done, which in
fact and in truth was not done, the court is entitled and bound
to ascertain for what purposes and between what person the
statutory fiction is to be resorted to'. 'When a legal fiction is
created', stated S.R. Das, J. 'for what purposes, one is led to H
256 SUPREME COURT REPORTS [1993) 1 S.C.R.

A ask at once, is it so created?"

Therefo!e, by the operation of deeming clause it only enables ap-
pointments made under 1959 Rules to be continued •mder 1984 Rules.
Certainly, by the repeal of 1959 Rules it cannot mean all those appoint-
ments cease. Nor again, the substantive provision of Rule 16, as stated
B above. Would govern. Therefore, Rule 24 has no application. Thus, we
conclude that the seniority of direct recruits will have to be reckoned only
from the date of appointment and not from the date of recruitment.

The gradation list which was impugned by the first respondent before
C the Tribunal was prepared in purs•1ance of the order of this Court read
with the aforementioned judgment of the Orissa High Court and this is so
stated in a letter dated 4th January, 1989 written by the Deputy Secretary
to the Government of Orissa, Forest, Fisheries and Animal Hisbandry
Department, Bhubaneshwar to the Principal Chief Conservator of Forest,
Orissa, Bhubaneshwar (Annexure-II to the Special Leave Petition in S.L.P.
D (C) No. 1604 of 1992). That this gradation list had been framed upon the
aforesaid basis also does not appear to have been brought to the attention
of the tribunal.

The gradation list has been in operation over several years. We see
no reason to unsettle the settled position. In this behalf we draw support
E from the judgment of this Court in Direct Recruit Class-II Engineering
Officers' Association v. State of Maharashtra and others., [1990) 2 SCC 715.
We may also note that though the same question was before this Court a
little before the petition was made by the first respondent before the
Tribunal, no effort was made by the first respondent to intervene and place
F before this Court his point of view. It is inconceivable that he would not
have known that the same question was before this Court.

Turning to the quota rule the records reveal that the Government
had clearly taken a decision to increase the number of posts to be filled
up by promotion in excess of the 1/3rd of total posts in the cadre on
G administrative grounds connected with nationalisation of Kendu Leaf
Trade in 1972-73 in the interest of public due to non-availability of direct
candidates trained in the Indian Forest College, Dehradun. It is not correct
to say that Government have decided that the quota of direct recruitment
which will be encroached upon by the promotees will be released as and
H when direct recruits are available. In fact, it was decided that the 4 direct
PRAFULLA SWAIN v. PRAKASH MISRA [MOHAN, J.] 257

candidates who were by then under diploma course Training in forestry at A
Dehradun in the event of their coming out successful during 1974 from the
/ training College may be appointed and in consequence, the junior most
promotee officers who were appointed on ad hoc basis as aforesaid pend-
ing concurrence of Orissa Public Service Commission will have to be
reverted to make room for them. No promotion to Orissa Forest Service
Class II could be made on regular basis without obtaining concurrence of
B
the Orissa Public Service Commission as per Clause 2(h) of Regulation II
I
appended to the Orissa Forest Class II Recruitment Rules, 1959. In view

~ of the urgency to implement the Kendu Leaf Scheme in 1973, 39 Forest
Rangers were appointed to Class II Forest Service on an 'ad hoc' basis for
a period of six months or till concurrence of the Commiss;on is received c
for their final appointment. The 39 Forest Ranger had already been
promoted to Orissa Forest Service Class II on regular basis on the recom-
mendation of the Orissa Public Service Commission. In view of this, it is
not correct to say in that the decision taken by Government for promoting
~ excess promot~es in the year 1972 was only to promote them on an ad hoc
D
basis within that quota. Hence, to contend that the promotees would
obvi~usly have to yield to direct recruits who came in subsequently within
their quota and would consequently also not be eligible for seniority above
direct recruits, is untenable.

. :\ We may also add that there were earlier proceedings in Transfer E
Application No.147 of 1986 before the Orissa Administrative Tribunal. The
decision was rendered on 3.7.87. SLP (C) No. 1624 of 1988 filed against
the said decision was dismissed by this Court on 18.1.89. There was also
an application, OJ.C. No. 588 of 1972 before the Orissa High Court in
Manoranjan Rath v. State of Orissa and others. The decision was rendered F
on 10.6.74. Against the said decision Civil Appeal Nos. 2051-52 of 1974
_._ were preferred to this Court which were dismissed on 7.1.88. The Tribunal
in the above judgment had held on pentsa/ of the departmental file that the
Government had taken decision to increase the number of posts to be filled
up by promotion on administrative grounds. This was necessitated because
of the nationalisation of Kendu Leaf Trade. Action to fill up the posts by G
promotion of .Forest Rangers in excess of 1/3rd of the total posts in the
cadre was taken in pursuance of the decision of the Government. Though
+-~ the actual decision of the Government is not produced before us yet the
proceedings of the meetings of the Departmental Committee held on 5.1.80
and 7.1.80 to select Forest Rangers suitable for promotion took note of H
258 SUPREME COURT REPORTS [1993) 1 S.C.R.

A Rule 5(3) which contains the saving clause.

· "Save as otherwise decided by Government, number of posts
of the service filled up by promotion shall not exceed one- third
of the total number of such posts in the cadre."

B These proceedings speak volumes. Tbe proceedings were given effect
to by promotions. Such promotions in excess of the prescribed quota had
· to be made since no more directly recruited candidates were available
during that year. The Government did not want its work to be hampered
by allowing the posts were to remain vacant. While seeking the concurrence
C of Orissa Public Service Commission to the decision taken by the
Departmental Committee held on 5.1.80 and 7.1.80, the proceedings of the
Committee explain lhe circumstances under which the Government
decision was taken. From this point of view, we find the decision in Keshav
Chandra Joshi's case (supra) has no application here. Therefore, the
promotions given in excess of 1/3rd quota are valid. There is no justification
D to push down the promotees in seniority. The promotion in excess of the
prescribed quota was necessitated by the exigencies and in the interest of
the public. It is supported by a conscious decision of the Government which
is permissible under Rule 5(3). Therefore, we reject the arguments ad-
vanced on behalf of the direct recruits in this regard.
E
A reference was made to the Indian Forest Service (Appointment by
Promotion) Regulations, 1966, particularly Regulation 5. It is also urged
that from the post of Class II, promotion is to be made to Class I. We are
of the view that since the appointments in question are regulated under
· Orissa Forest Service Class II Recruitment Rules, the said Regulations of
F 1966. have no application. Further, as pointed out above, the Orissa Rules
were framed under proviso to Article 309 of the Constitution of India and
have statutory and binding force.

Now comes the proverbial last straw on the camel's back.
G There have been !aches on the part of the direct recruits in seeking
the remedy. Wben the list was published in 1985 nothing prevented them
to approach earlier. This is the point to be put against them.

That this position was known to the direct recruit (Prakash Chandra
H Mishra) is clear from paragraph 18 of his petition before the Tribunal. It
PRAFULLA SWAIN v. PRAKASH MISRA [MOHAN, J.] 259

reads thus. : A
'16. Therefore, placement of Respondent Nos. 42 to 94 as per
Civil List corrected upto 1982 published in the year 1985 by the
State Government who are promotees from amongst the Forest
Rangers in Subordinate Service to Class II Service as Assistant
Conservator of Forests in the year 1980 when this applicant was B
1111dergoing training at Burnihat, Assam, is patently illegal and
an act without jurisdiction by the State Government of Orissa.'

(Emphasis supplied)

We do not want to unsettle settled matters which will lead to several C
complications.

In view of the foregoing discussion, we set aside the judgment of the
Tribunal. The appeals will stand allowed. However, there shall be no order
as to costs.

V.P.R. Appeals allowed.