Holding

Under the West Bengal service rules, merit is judged by the passing of the departmental examination and seniority is measured from that date; consequently the High Court order is set aside and the promotion order of 28 March 2001 is restored.

Summary

The appellants (Sankar Deb Acharya & Ors.) and the respondents (Biswanath Chakraborty & Ors.) were recruited on a temporary basis through the West Bengal Public Service Commission. The dispute concerned inter‑se seniority and promotion under the merit‑cum‑seniority policy, specifically whether seniority should be based on the date of joining service or on the date of passing the departmental examination, which is a prerequisite for confirmation. The State Government had imposed an additional condition of minimum years of service for promotion, which the High Court struck down and directed that the respondents be given higher scales based on merit‑cum‑seniority. The Supreme Court held that the service rules make passing the departmental examination the essential test of merit, and seniority is to be reckoned from that date; therefore the High Court’s direction was erroneous. The Court set aside the High Court judgment, restored the promotion order dated 28 March 2001, and allowed the appeals.

Issues considered

Whether seniority for promotion under the merit‑cum‑seniority policy is determined by the date of joining service or by the date of passing the departmental examination.
Whether the requirement of passing the departmental examination is a condition precedent to confirmation under the West Bengal Services (Appointment, Probation and Confirmation) Rules, 1979.
Whether the additional condition of minimum years of service imposed by the Government memo of 12 Oct 1983 is valid.
Whether the High Court’s order directing higher scales for the respondents is consistent with the applicable service rules.

Subjects

service lawpromotionsenioritymerit‑cum‑seniorityprobationdepartmental examinationtemporary appointmentconfirmationWest Bengal servicesadditional conditionseniority determination

Judgment

- SHANAKR DEB ACHARY A AND ORS.
v.
A
BISWANATH CHAKRABORTY AND ORS.

OCTOBER 19, 2006

[H.K. SEMA AND P.K. BALASUBRAMANYAN, JJ.) B

Service Law:

West Bengal Services (Appointment, Probation and Confirmation) Rules,
1979: Rule 5. C
Promotion-Merit-cum-seniority-Inter se seniority-Determination
of-Appointment on probation and appointment on permanent basis-
Distinction between-Some candidates were appointed through the State
Public Service Commission on temporary basis-Some candidates joined
duty earlier than others-Those who joined later passed the departmental D
examination prior to those who joined earlier-These employees also
co1!1pleted the period of probation and were confirmed at an earlier point
of time than the other employees-Rules provided that consideration was on
the basis of merit-cum-seniority-However, High Court directed that higher
scales of pay be given to those employees who passed the departmental E
examination later-Correctness of-Held: Requirement of passing of the
departmental examination 'is essential before confirmation by a declaration
by the appointing authority in that behalf-The sole basis of judging merit,
therefore, is the passing of departmental examination-In the policy of merit-
cum-seniority great emphasis is on merit and the ability and seniority plays
a less significant role-Seniority has to be given weightage only when merit F
and ability are approximately equal-High Court judgment set aside-West
Bengal Services (Training and Examination) Rules, 1953 (as amended)-The
West Bengal Services (Revision of Pay and Allowances) Rules, 1970.

The appellants and the respondents were recruited through the State
Public Service Commission on temporary basis. The respondents were G
appointed earlier to the appointment of the appellants and joined duty earlier
than the appellants' date of joining. The appellants passed the departmental
examination prior to the private respondents. The appellants also completed
the period of probation and were confirmed at an earlier point of time than
651
H
A
652 SUPREME COURT REPORTS [2006] SUPP. 7 S.C.R.

the respondents. The scheme of the West Bengal Services (Training and
Examination) Rules, 1953 (as amended), the West Bengal Services (Revision
-
of Pay and Allowances) Rules, 1970 and the West Bengal Services
(Appointment, Probation and Confirmation) Rules, 1979 provided for
probation, passing of departmental examination and confirmation after the
departmental examination and completion of probation. The Rules also provided
B that the consideration is merit-cum-seniority.

The State Government vide its memo imposed an additional condition
prescribing a minimum period of six years' service in scale 17 for promotion
to scale 18 and a minimum combined period of 13 years' service in scales 17
and 18 before promotion to scale 19. This additional condition was challenged
C by some of the private respondents before the High Court The High Court
quashed the said memo imposing additional condition and further directed
that the respondents be given the higher scales 18 and 19 on the basis of
their respective merit-cum-seniority w.e.f. the date when the promotion policy
came into effect. Hence the appeal.

D The following question arose before the Court:

Whether the private respondents could be made seniors to the appellants
solely on the ground that they joined the service earlier to the appellants'
date of joining?

E Allowing the appeal, the Court

HELD: I. The mandate of the West Bengal Services (Training and
Examination) Rules, 1953 (as amended), the West Bengal Services (Revision
of Pay and Allowances) Rules, 1970 and the West Bengal Services
(Appointment, Probation and Confirmation) Rules, 1979 is that the
F Government employees shall be deemed to be on probation on completion of
continuous temporary service for two years. The Rule further mandates that
an employee shall be confirmed and made permanent on satisfactory
completion of period of probation and where passing of any departmental
examination is essential before confirmation, the provisions of the Services
G (Training and Examination) Rules sh"all be complied with. Rule 5(4) further
mandates that on completion of the period of probation the appointing authority
shall issue a formal declaration making the probationer permanent.
(663-E, F, G(

2. The respondents were appointed on temporary basis and not on
H permanent basis and, therefore, the services of the respondents would fall
SHANAKRDEBACHARY Av. BISWANATHCHAKRABORTY 653

within the mischief of Rule 5 of the 1979 Rules where the requirement of A
passing of the departmental examination is essential before confirmation by
a declaration by the appointing authority in that behalf.1664-C, DI

3. The promotion policy announced by the Government would clearly
disclose that the consideration is merit-cum-seniority. The streams of Rules
also contemplates passing of departmental examination as a condition B
precedent for completion of probation and confirmation. In the scheme of Rules
and policy of promotion, the consideration being merit-cum-seniority, the sole
basis of judging merit is the passing of departmental examination.
(664-G; 665-Al

Commissioner of Police v. R.S. More, (20031 2 SCC 408 and High Court C
ofM.P. v. Satya Narayan Jhavar, 120011 7 SCC 161, relied on.

4. When the principle of merit-cum-seniority is applied, it is now a well
settled principle that great emphasis is on merit and the ability and seniority
plays a less significant role. Seniority has to be given weightage only when
merit and ability are approximately equal. 1665-G, H; 666"AI D
B. V. Sivaiah v. K. Addanki Babu, (19981 6 SCC 720 and Central Council
for Research in Ayurveda & Siddha v. Dr. K. Santhankumari, (20011 5 SCC
{i0, relied on.

Jagdish Kumar v. State of H.P., (2005113 SCC 606 and M.H. Patil v. E
State of Maharashtra, (19991 1 sec 249, referred to.

CIVIL APPELLATE JURISDICTION : Civil Appeal No. 6383 of2003.

From the Final Judgment and Order dated 11.12.2002 of the High Court
of Calcutta in W.P.S.T. No. 1044/2002. F
With Civil Appeal No. 6384 of2004.

,\nindita Gupta, H.K. Puri and Uijawal Banerjee for the Appellants.

Ranjit Kumar, Rana Mukherjee, J. Kar, Siddharth Gautam and Goodwill G
Indeevar for the State of West Bengal in C.A. No. 6384/2003.

Altaf Ahmed, Tapas Ray, Avijit Bhattacharjee and Saumya Kundu for
the Respondents.

The Judgment of the Court was delivered by
H
654 SUPREi'vtE COURT REPORTS [2006] SUPP. 7 S.C.R.

A H.K. SEMA, J. The challenge in these two appeals is to the judgment
and order dated 11.12.2002 passed in W.P.S.T. No. 1044 of 2002 by the
Division Bench of the Calcutta High Court.

Civil Appeal No. 6383 of 2003 has been filed by Sankar Deb Acharya
& Ors. and Civil Appeal No.6384 of2003 has been filed by the State of West
B Bengal & Ors. both against Biswanath Chakraborty & Ors. Both the appeals
raise a common question of law and as such they are being disposed of by
this common judgment. ·

We have heard the parties at length.

c Mr. Raju Ramchandran, learned senior counsel appeared for the
appellants in Civil Appeal No. 6383 of 2003 and Mr. Altaf Ahmed, learned
senior counsel, appeared for the respondents. We have also heard Mr.Ranjit
Kumar, learned senior counsel for the appellants in Civil Appeal No. 6384 of
2003 and Mr. Tapas Ray, learned senior counsel, for the respondents.
D These two appeals have a chequered history. Avoiding prolixity, we
may state few facts strictly for the purpose of disposal of these two appeals.
As the question of facts and law raised are common, we are taking facts from
Civil Appeal No. 6383 of2003.

E The dispute raised in these two appeals is with regard to inter se
seniority and promotions of the appellants and the private respondents,
under the applicable rules, namely the West Bengal Services (Training &
Examination) Rules, 1953, as amended, the West Bengal Services (Revision of
Pay and Allowances) Rules, 1970 and the West Bengal Services (Appointment,
Probation and Confirmation) Rules, 1979, where according to the scheme of
F service rules the criteria for promotion is merit cum seniority and whether the
private respondents can be made seniors to the appellants solely on the
ground that they joined the service earlier to the appellants' date of joining.

The facts, which are not disputed, are thus:

G (a) The appellants and private respondents are direct recruits at
entry scale 17. The next promotion is to scale 18 and then to
scale 19.
(b) Private respondents joined the duty earlier than the appellants'
date of joining.
H
SHANAKRDEBACHARYA r. BISWANATHCllAKRABORTY[H.K.SEMA.JJ 655

(c) The appellants passed the departmental examination and were A
confirmed in service in terms of rules prior to the private
respondents.

The two charts showing the detail of respective dates of joining the
duty and passing of the departmental examination and confirmation by the
appellants and private respondents are as under: B
A. POSITION OF APPELLANTS
SI. Name of Date of Date of Date of
No. Appellants Joining passing Confinnation
Departmental Examination
c
I. Sankar Dev Acharaya 07.03.79 26.06.83 26.06.83

2. Gaur Hari Khanra 17.06.80 01.12.85 01.12.85

3. Pradip Kr.Ghosh 12.05.80 29.12.82 29.12.82

4. Niranjan Das 12.06.80 13.01.85 13.01.85 D
5. Sandip Kr.Bisnu 18.08.81 29.12.82 18.08.83
6. Asit Ranjan Maity 04.09.81 01.12.85 01.12.85
. •
B. POSITION OF PRIVATE RESPONDENTS E
SI. Nameot Date ot uate ot uate ot
No. Appellants Joining passing Confinnation
Departmental Examination

I. Biswanath Chakraborty 10.1.78 16.12.88 16.12.88
F
2. Goutam Mitra 24.5.77 21.11.91 21.11.91

3. Anath Sandhu Biswas 5.5.78 5.6.92 5.6.92

4. Shyamapada Sarkar 20.5.77 26.11.92 26.11.92

5. Samir Kumar Ganguly 27.3.76 16.12.88 16.12.88 G
• 6. Haider Ali 32.78 16.12.88 16.12.88

7. Chunilal Ray 1.12.76 16.12.88 16.12.88
8. Subhijit Sarkar 9.9.77 16.12.88 16.12.88
H
656 SUPREME COURT REPORTS [2006] SUPP. 7 S.C.R.

A 9. Ashis Kr.Ghosh( I) 20.6.77 29.12.82 29.12.82
10. Debabrata Das 20.5.77 26.11.92 26.11.92

11. Dilip Kr.Dutta 19.7.79 16.12.88 16.12.88
12. Dinendra Kr. Chandra 1.6.77 1.6.84 1.6.84
B
13. Amarendra Nath
Bhowmik 13.1.78 16.4.94 16.4.94

14. Ramesh Ch. Sarkar 16.7.77 26.11.92 26.11.92

15. Subhendra Bikash
c Mallik 28.7.78

-
1.6.84 1.6.84

16. Bejoy Kumar Banerjee 2.7.78 16.12.88 16.12.88

17. Bidhan Ch.Saha 28.12.76 21.11.91 21.11.91

18. Bimal Kr. Bhttacharjee 1.6.77 31.5.85 31.5.85
D
19. Prem Das Roy 12.7.77 5.6.92 5.6.92

20. Anindya Kumar Mitra 1.6.77 16.5.95 16.5.95

21. Prabir Kr.Dutta 2.5.78 1996 confirmed
E 22. Asit Baran Mudi 28.8.76 5.6.92 5.6.92

23. Mrinal Kanti Sarkar 31.12.76 25.11.83 25.11.83

24. Amitava Saha 3.6.77 27.11.97 27.11.97

25. Nil Kamal Saha 16.4.80 5.6.92 5.6.92
F
26. Md.Haider 16.9.76 21.11.91 21.11.91

27. Shamal Kanti Bal 1.8.79 16.12.88 16.12.88

28. Paresh Nath Das 8.12.76 1.6.84 1.6.84
G 29. Abdus Suni Nasir 19.7.76 16.12.88 16.12.88
'
30. Kamal Sengupta 22.1.75 !.6.84 1.6.84

31. Ratan Kumar 18.8.76 21.7.91 21.7.91
Sandhukhan
H
SHANAKR DEB ACHARYAv. BISW ANATH CHAKRABORTY [H.K.SEMA, J.] 657

32. Sekhareswar Kundu 6.8.77 16.12.88 16.12.88 A
33. Janardan Monda! 26.4.78 18.5.88 1.5.88

34. Jaydeb Biswas 23.8.78 17.tl.86 17.11.86

35. Anil Kumar Kesh 9.6.78 5.6.92 5.6.92
B
36. Golam Sarwar 1.6.77 16.12.88 16.12.88

37. Habibul Ahsan 1.7.77 5.6.92 5.6.92

38. Rathindra N.
Bhattacharjee 30.6.76 5.6.92 5.6.92
c
39. Subhas Ch.Das 10.6.77 16.6.94 16.6.94

40. Supriya Ranjan 17.12.77 Not yet Not yet
Ghosh passed confirmed

41. Narayan Ch.Ghosh 17.12.74 28.5.81 28.5.81
D
42. Subodh Kr.Sarkar 3.5.78 26.11.92 26.11.92

43. Ashim Kumar Mitra 23.7.79 17.5.87 17.5.87
44. Ananda Mohan
Chakraborty 6.3.79 1.6.86 1.6.86
E
45. Asish Kumar Ghosh(II) 20.6.77 17.11.94 17.11.94
46. Jaydev Jana 27.5.77 26.6.83 26.6.83
•
To answer the aforesaid questions, it will be relevant to have a quick
survey of the scheme of the rules framed from time to time. The Government
of West Bengal framed the rules called Training and Examination Rules, 1953
F
(hereinafter the 1953 rules) as amended. The rules inter alia provided that
a government servant appointed on probation, remains a probationer until
confirmation. A probationer would have to pass before confirmation any test
or examination, prescribed as a condition precedent for confirmation in the
... service. It also provided that no officer shall be eligible for promotion unless G
he has completely passed the departmental examination. Then came the West
Bengal Services (Revision of Pay and Allowances) Rules. 1970 (hereinafter
the ROPA Rules). It also provided that all appointment to a permanent post
under the Government would be on probation, which shall include West
Bengal Food & Supplies Service.
H
658 SLIPREME COURT REPORTS [2006] SUPP. 7 S.C.R.

A The Government of West Bengal framed rules called West Bengal
Services (Appointment, Probation and Confirmation) Rules, 1979 (hereinafter
the 1979 rules). The rules inter alia provided that where the rules for
confirmation required passing of any academic, departmental or other
examination before confirmation, the 1979 Rules would not be construed to
relax to such requirement.
B
The Government of West Bengal framed rules called West Bengal
Services (Revision of Pay and Allowances) Rules, 1981 (hereinafter the ROPA
Rules, 1981). On 5.8.1981 the Government of West Bengal announced a
Promotional Policy for the state government employees inter alia provided
C that the posts in the scales 18 and 19 under ROPA Rules, 1981 would be filled
through promotion, on the basis of merit cum seniority from within the
respective service and departmental cadres. In West Bengal Food and Supplies
Services cadre, 220 posts were redistributed as follows, 150 po.sts in scale 17,
61 posts in scale 18 and 9 posts in scale 19.

D Thereafter, vi de memo dated 12.10.1983, the Government imposed an
additional condition prescribing a minimum period of six years' service in
scale 17 for promotion to scale 18 and a minimum combined period of 13
years' in scales 17 and 18 before promotion to scale 19.

The additional condition imposed vide memo 12. l 0.1983 and the order
E passed thereunder were challenged by filing Writ Petition being C.O.No.590(W)
of 1988 by some of the private respondents herein along with some other
persons before the High Court. The only contention raised in the application
was that the additional condition sought to be imposed was discriminatory,
as the same had not been imposed in the cases of other state government •
Services. The learned Single Judge by an order dated 13.2.1990 allowed the
F Writ Petition and quashed the Government Memo dated 12. l 0.1983 imposing
additional condition. The learned single Judge further directed that the
respondents be given the higher scales 18 and 19 on the basis of their
respective merit-cum-seniority w.e.f. the date when the promotion policy came
into effect. Consequent to the order aforesaid the Government issued a fresh
G promotion order dated 11.9.1991. This, however, dispensed with the
compliance of the rules about determination of merit-cum-seniority, which
mistake was later acknowledged by the State Government. The mistake was
corrected by an order dated 19.9.1991. By the said order the Government
directed the compliance with the relevant service rules before giving effect to
the promotion order dated 11.9.1991 and directed that no payment of arrear
H
SHANAKR DEil ACHAR YA r. BISWANA TH CHAKRABORTY [HKSEMA . .I.] 659
dues be made to officers promoted before confirmation. A
The appellants being aggrieved by the order dated 11.9.1991 moved
Writ Petition being C.0.2031 (W) of 1993 before the High Court of Calcutta
wherein the officers covered by the promotion order dated 11.9.1991 were also
impleaded. In the Writ Petition the appellants raised a contention amongst
others that unequals had been treated equally. An injunction sought for was B
rejected. An appeal being F.M.A.T.589 of 1993 was preferred before the
Division Bench of the Calcutta High Court which was disposed of by the
Division Bench on 27.11.1995 directing the State to consider the case of all
eligible candidates including the appellants and others strictly in accordance
with law and the relevant rules as applicable. The aforesaid direction of the C
Division Bench was sought to be complied with by a memo dated 16.2.1996.
However, promotion order dated 11.9.1991 was left undisturbed. The same
was challenged by some of the appellants before the Administrative Tribunal
in O.A.No.759 of 1996 seeking proper implementation of the Division Bench
order and also seeking refixation of seniority of officers. The Tribunal
disposed of O.A. No. 759 of 1996 by an order dated 17 .11.1997. Being not D
satisfied with the order of the Tribunal the appellants challenged the order
of the Tribunal by filing a Writ Petition, WPST No. 8 of 1998 before the
Division Bench of the High Court in which 15 respondents illegally promoted
by an order dated 11.9.1991 were also impleaded amongst others. It was
contended before the Division Bench that non-observance of the promotion
rules regarding eligibility was illegal but the Tribunal had failed to address the
E
said issue.

After referring to Rule 5(b) of the 1979 Rules, the Division Bench came
to the following conclusion:

"Having heard the learned Counsel, we are of the opinion that keeping F
in view the fact that in the instant case confirmation is not to be
granted automatically or being not a fortuitous circumstances, as a
result whereof the seniority of the respective employee would be
normally determined, from the date of their initial appointment, this
aspect of the matter may also be considered by the authorities G
, concerned afresh. Such consideration may be made at an early date,
and preferably within a period of 8 weeks from the date of
communication of this order. The order of the learned Tribunal is
modified to the aforementioned extent and the writ petition is disposed
of'.
H
660 SUPREME COURT REPORTS [2006] SUPP. 7 S.C.R.

A It appears that pursuant to a writ of mandamus issued by the Division
Bench on 5.5.2000 the Government of West Bengal issued a fresh promotion
order under the memo dated 28.3.2001. In the said memo the Government has
acknowledged the mistake committed in the order dated 11.9.199 l in ignoring
the Rules for the determination of merit-cum-seniority .. In the said order the
Government has considered the entire rules relevant for detennination of
B merit-cum-seniority and grant of higher scale to the eligible officers and the
same order was passed in accordance with the Rules.

We are surprised to notice that aggrieved party (respondents herein)
again approachedthe Tribunal in O.A.No.636 of2001 and the Tribunal by its
C order dated 10-4.2002 set aside the Government order dated 28.3.2001 which
was passed, as already noticed, pursuant to the writ of mandamus issued by
the Division Bench of the High Court The Tribunal was of the view that
effected persons have not been heard and the matter be remanded back to
the Government for fresh consideration. We are unable to subscribe to the
view expressed by the Tribunal. Firstly, since the order of 28.3.2001 was
D issued pursuant to a mandamus issued by the Division Bench of the High
Court, the Tribunal should not have interfered. Secondly, before the High
Court the interest of the present respondents were adequately represented
and there was no question of passing an order without hearing the parties
who had been adversely affected.

E Aggrieved by the order of the Tribunal of remand the private
respondents herein filed WPST No. I 044 of 2002 before the Division Bench
of the Calcutta High Court. The Division Bench of the High Court after
hearing the parties by the impugned judgment and order set aide the directions
of the Tribunal of remand of the matter for re-consideration. The High Court
F was of the view that the controversy has been finally settled in terms of the
judgment and order passed in CO.No.590(W) of 1988 by learned single Judge,
affinned in appeal. The High Court further directed the authorities to act in
tenns of the promotion order dated 11. 9. 1991 by setting aside the order dated
28.3.2001 which was issued pursuant to a writ of mandamus issued by the
Division Bench of the High Court.
G
The High Court order is assailed mainly on two grounds (a) that the
directions in the impugned judgment run counter to the Rules and (b) that
the impugned judgment is contrary to earlier orders passed by the co-ordinate
Bench of the High Court. ln short, the impugned judgment of the High Court
has set-aside two orders of the co-ordinate benches, passed earlier.
H
SHANAKRDEBACHARYAr.BISWANATHCHAKRABORTY[HKSEMA.J] 661

The impugned judgment of the High Court has relied on the judgment A
in C.0.No.590(W) of 1988. As already noticed, the judgment in the aforesaid
matter was confined to the imposition of additional condition, which has no
relevancy in the facts of the present controversy. The High Court also erred
in directing to restore the promotion order dated 11.9.1991, w:1ich was set
aside earlier by co-ordinate bench by its judgment dated 27 .11.1995 in FMA T
No.589 of 1993. The High Court was also clearly in error in setting aside the B
order dated 28.3.200 I which was passed pursuant to a writ of mandamus
issued by the co-ordinate bench earlier in WPST No.8 of 1998 on 5.5.2000.
In any event, in our view, the impugned order of the High Court is unsustainable
in law.

We now proceed to make a quick survey of the set of rules, which are C
relevant for the purpose of disposal of these appeals. At the risk of repetition
the appellants and respondents were recruited through the West Bengal
. Public Service Commission on temporary basis. It is also not disputed that
the respondents were appointed earlier to the appointment of the appellants
and joined duty earlier than the appellants' date of joining. It is also not D
disputed that the appellants passed departmental examination prior to the
·private respondents. The appellants also completed the period of probation
and were confirmed at an earlier point of time than the respondents. The
scheme of the rules, which we shall be dealing with presently, provides
probation, passing of departmental examination and confirmation after the
departmental examination and completion of probation. The Rules also provide E
that the consideration is merit-cum-seniority.

The 1953 Rules deal with General Rules regulating the Probation and
Training of Officers appointed on probation to !AS, !PS, and West Bengal
State Services.
F
Rule I(ii) defines "Probationer" as a Government servant appointed on
probation and remains a probationer until he is confirmed.

Rule 3 deals with assigning special reasons, if the appointing authority
so decides to extend a probationer's prescribed period of probation not G

.
.
exceeding half the prescribed period.

Rule 4 deals with the completion of period of probation or the extended
period of probation, as the case may be, and provides that the appointing
authority shall record an order either confirming the probationer from such
H
662 SUPREME COURT REPORTS [20061 SUPP. 7 S.C.R.

A date as it may deem fit, subject to the restrictions prescribed in rule' 8, or
discharging him.

Rule 8 deals with the confirmation. It reads:-

"A probationer may not be confirmed until he has served on probation,
for the period prescribed under rule 2, passed any test or examination
B
the passing of which may by rule be prescribed as a condition of
confirmation in the service or post in which it is proposed to confirm
him, and been declared by the appointing authority to be fit for
confinnation".

C Note: The departmental examinations prescribed in Chapter II-VI or
parts thereof as are applicable to particular service or posts should be
considered to be examinations, the passing of which is a pre-condition
of confirmation under this rule.

Rule 13 in Chapter II provides that no probationer will be confirmed
D until he has passed completely the departmental examination prescribed for
him. Failure to pass the examination within the probationary period will make
him liable to discharge.

Part 20 of the Rules deal with the Officers of the Departments of Food
and of Supplies. Clause I deals with the requirement to pass a departmental
E examination as prescribed under the Rules of the Officers of Department of
Food and of Supplies and above the rank of Chief Inspectors. There is no
dispute that both the appellants and respondents are above the rank of Chief
Inspectors and they are required to pass the departmental examination
prescribed under the Rules in Part 20.

F Rule I0 of Part 20 provides that no officer will ordinarily be eligible for
promotion unless he has passed the examination completely.

Then comes West Bengal Services (Appointment, Probations and
Confinnation) Rules, 1979. Rule 5 of the Ruks deals with the appointment
G on probation and appointment on permanent basis. It reads:-
"R.5 Appointment on probation and appointment on permanent
..
basis-( I) A Government employee-

(a) shall be deemed to be on probation on completion of continuous
temporary service for two years after his initial appointment in
H a post of service or cadre;
SHANAKRDEBACHARYA r. BISWANATHCHAKRABORTY[H.K.SEMA,J.] 663

(b) shall be confinned and made pennanent on satisfactory completion A
of the period of probation. Where passing of any departmental
examination is essential before confinnation, the provisions of
Chapter I of the Services (Training and Examination) Rules, West
Bengal, shall have to be complied with.

(2) Except as otherwise provided elsewhere in these rules, the period B
of probation shall be one year.

(3) No formal declaration shall be necessary in respect of appointment
on probation.

(4) On completion of the period of probation the appointing authority
shall either issue fonnal declaration making the probationer pennanent C
or take such action as may be considered necessary in terms of the
provisions of Part A of Chapter I of the Services (Training and
Examination) Rules, West Bengal, within six months from the date of
completion of the period of probation, or of the extended period of
probation, if any, and the appointing authority shall ensure that D
confinnation on satisfactory completion of the period of probation is
not delayed in any case.

Rule 6(2) provides inter alia that where the Rules for confinnation
required the passing of any academic, departmental or other examination
before confinnation, the 1979 Rules would not be construed to relax such E
requirement.

The mandate of the Rules, as noticed above, is that the Government
employees shall be deemed to be on probation on completion of continuous
temporary service for two years. The Rule further mandates that an employee
shall be confinned and made permanent on satisfactory completion of period F
of probation and where passing of any departmental examination is essential
before confinnation, the provisions of the Services (Training and Examination)
Rules shall be complied with. Sub-Rule (4) of Rule 5 further mandates that
on completion of the period of probation the appointing authority shall issue
a formal declaration making the probationer permanent. G
Rule 7 deals with repeal and savings.

We may, at this stage, deal with one of the arguments of Mr. Altaf
Ahmad, appearing for the respondents. Referring to the appointments of the
respondents, it is contended by Mr. Altaf Ahmad that the appointments of H
664 SUPREME COURT REPORTS [2006) SUPP. 7 S.C.R.

A the respondents were made through the examination conducted by the West
Bengal Public Service Commission and on the recommendation of the
Commission. According to him, therefore, the appointments of the respondents
were not on probation and, therefore, 1979 Rules would have no application.
We are unable to countenance this contention. No doubt, the respondents
B were appointed to the service after the examination conducted by the Public
Service Commission and recommended by the Commission, however, the
appointments were purely temporary and terminable at the discretion of the
Government with one month's notice on either side or on payment of one
month's pay in lieu thereof. Rule 5(l)(a) as quoted above contemplates two
conditions. Firstly, that an employee appointed on temporary service after
C serving for two years after his initial appointment in post of service or cadre,
shall be deemed to be on probation and secondly, the words "employee shall
be deemed to be on probation" visualizes the pre 1979 situation, if one were
working on temporary basis. We have noticed that the respondents were
appointed on temporary basis and not on permanent basis and therefore the
services of the respondents would fall within the mischief of Rule 5 of the
D 1979 Rules where the requirement of passing of the departmental examination
is essential before confirmation by a declaration by the appointing authority
in that behalf.

The next question to be considered is the criteria of merit-cum-seniority
E in the promotion to scale 18 and scale 19. By a circular dated 5.8.1981 the
Government has brought out statement of promotion policy. Paragraph 4 of
the said circular reads:-

"4. In the case of the State Services, including the State Civil Service,
State Health Service and the State Engineering Service, the number of
F posts currently available in Scales 18 and 19 are being increased with
effect from April 1, 1981, those posts will be filled through promotion,
on the basis of merit cum seniority, from within the respective Service
and Depart1i1ental Cadres. The rearrangement of posts within each
cadre is listed in the Annexure".

G (emphasis supplied)

The promotion policy announced by the Government would clearly
disclose that the consideration is merit-cum-seniority. The streams of Rules
as referred to above and considered, also contemplates passing of departmental
examination as a condition precedent for completion of probation and
H
SHANAKRDEBACHARY Ar. BISWANATHCHAKRABORTY[HK.SEMA . .1.] 665

confirmation. In the scheme of Rules and policy of promotion, the A
consideration being merit cum seniority, the sole basis of judging merit is the
passing of the departmental examination.

In Commissioner of Police v. R.S. More, [2003] 2 SCC 408, this Court
held that confirmation of service on a particular post is preceded by satisfactory
performance of the incumbent unless service rules otherwise prescribe. B
In High Court ofMP. v. Satya Narayan Jhavar, [200 l J 7 SCC 161, this
Court held in paragraph I I at sec p.169 as under:-

"11. The question of deemed confirmation in service jurisprudence,
which is dependent upon the language of the relevant service rules, C
has been the subject matter of consideration before this Court, times
without number in various decisions and there are three lines of cases
on this point. One line of cases is where in the service rules or in the
letter of appointment a period of probation is specified and power to
extend the same is also conferred upon the authority without D
prescribing any maximum period of probation and if the officer is
continued beyond the prescribed or extended period, he cannot be
deemed to be confirmed. In such cases there is no bar against
termination at any point of time after expiry of the period of probation.
The other line of cases is that where while there is a provision in the
rules for initial probation and extension thereof, a maximum period for E
such extension is also provided beyond which it is not permissible to
extend probation. The inference in such cases is that the officer
concerned is deemed to have been confirmed upon expiry of the
maximum period of probation in case before its expiry the order of
termination has not been passed. The last line of cases is where F
though under the rules maximum period of probation is prescribed, but
the same requires a specific act on the part of the employer by issuing
an order of confirmation and of passing a test for the purposes of
confirmation. In such cases, even ifthe maximum period of probation
has expired and neither any order of confirmation has been passed nor
has the person concerned passed the requisite test, he cannot be G
deemed to have been confirmed merely because the said period has
expired''.

When the principle of merit-cum-seniority is applied, it is now well
settled principle that great emphasis is on merit and ability and seniority plays
a less significant role. Seniority has to be given weightage only when merit H
666 SUPREME COURT REPORTS [2006] SUPP. 7 S.C.R.

A and ability are approximately equal. ESee: B. V. Sivaiah v. K. Addanki Babu,
[ 1998] 6 SCC 720, Central Council for Research in Ayurveda & Siddha v.
Dr. K. Santhakumari, [2001] 5 SCC 60].

It is, however, contended by Mr. Altaf Ahmad that seniority be linked
with date of initial appointment and not from the date of passing the
B departmental examination. According to him, if one passes departmental
examination later in point of time, his seniority must relate back to the date
of original appointment. According to him, under merit cum seniority the test
is merit and once an incumbent passes the examination he qualifies the test
of merit and, therefore, his seniority relates back to the date of entry in the
C service. To accept such contention would negate the mandate of the Rules.

Mr. Altaf Ahmad has also drawn our attention to the rules called the
West Bengal Service (Determination of Seniority) Rule, 1981. He particularly
referred to Rule 4 of the Rules. Rule 4 reads:-

"4. Determination ofseniority of direct recruits:- The relative seniority
D
of all persons appointed directly through competitive examination or
interview or after training or otherwise shall be determined by the
order of merit in which they are selected for such appointment on the
recommendation of the Commission or other selecting authority, persons
appointed on the result of an earlier selection being senior to those
E appointment on the result of a subsequent selection;

Provided that where appointment of persons initially made
otherwise than in accordance with the relevant rules is subsequently
regularized in consultation with the Commission, where necessary,
seniority of such persons shall be determined from the date of
F regularization and not from the date of appointment. The inter-se
seniority amongst such persons shall, however, depend on the date
of appointment of each such person in the department or office
concerned;

Provided further that if any person selected for appointment to
G any post does not join within two months of the offer of appointment,
his seniority shall count from the date on which he joins the post
unless the appointing authority for reasons to be recorded in writing
condones the delay.

Note-(!) A list of candidates for the purpose of selection for
H appointment shall be prepared in all cases by the selecting authority,
SHANAKRDEBACHARYA ,._ BISWANAT!ICHAKRABORTY [H.K.SEMA,J. J 667

when there will be recruitment in a single process of selection of more A
than one person.

(2) Where the intcr-se seniority amongst several persons has not been
determined prior to the coming into force of these rules. such seniority
shall, on the coming into force of these rules, be determined on the
basis of actual date of their joining. When the da:e of joining of all B
such persons is the same, seniority shall be determined on the basis
of date of birth, persons retiring earlier being adjudged as senior.
When the date of birth is the same, seniority shall be determined on
the basis of total marks obtained by each in the examination, passing
of which is the qualification prescribed for recruitment to the particular C
post, cadre or grade.

(3) In so far as the determination of relative seniority of persons
selected either by the Commission or by other selecting authority for
appointment to different posts in the same grade with different
qualifications such as posts of Assistant Professor in History, D
Economics, Physics, Chemistry etc. is concerned, seniority shall be
determined from the date of joining.

On a fascicule reading of the Rule, it appears to us that the said Rule
has no application in the facts of the present case. Rule 4, in our opinion,
deals with the appointment directly through the competitive examination on E
permanent basis. There is no quarrel with the provision of the Rule that if
the Commission recommends and appoints the incumbents on pennanent
basis, such seniority has to be determined in the order of merit in which they
are selected for such appointment on the recommendation of the Commission.
As already noticed, the respondents were not appointed on permanent basis
though appointed through the examination conducted by the Commission. F
They were appointed purely on temporary basis terminable with one month's
notice on either side or on payment of one month's pay in lieu thereof. In our
view, therefore, Rule 4 is of no assistance to the respondents' case.

Mr. Altaf Ahmad has also referred to Rule I 0 of 1953 Rules. Rule I 0 G
of 1953 Rules reads:-

"l 0. When a probationer is confirmed otherwise than with effect from
the date of expiry of the period of probation prescribed under rule 2,
he will unless it be otherwise provided by rule draw as from the date
of effect of his confirmation the pay he would have drawn had he H
668 SUPREME COURT REPORTS (2006] SUPP. 7 S.C.R.

A been confirmed on the expiry of the prescribed period of probation,
and unless it be otherwise provided by rule, the whole of his services
from the date of his appointment on probation shall count for
increments".

In our view, Rule l 0 will be of no assistance to the respondents' case.
B Rule I0 simply provides that if an incumbent is confirmed on the expiry of
the prescribed period of probation and unless the rules provided otherwise,
the whole of his service from the date of his appointment on probation shall
count for increments.

Mr. Altaf Ahmad also referred to Notification dated 21.12.1966 framing
C the Rules under proviso to Article 309 of the Constitution regulating the
recruitment to the West Bengal Food and Supplies service. According to him,
they were appointed under 1966 Rules and there is no provision in the said
rules, which required the passing of the departmental examination. According
to him, requirement of passing the departmental examination was introduced
D for the first time by a Notification dated 10.1.1995. This contention is
factually incorrect. In fact on earlier occasion a Notification dated 21.4.1977
was issued, which required that candidates appointed by direct recruitment
against posts of West Bengal Food and Supplies Services and subordinate
Food and Supplies services Grade-I would be required to pass the departmental
examination to qualify for being declared quasi permanent in status and for
E the purpose of confirmation and the subject of the departmental examination
was also prescribed. The Notification dated 10.1.1995 only brought an
amendment and it is not correct to say that it was for the first time that
requirement of departmental examination was introduced on 10.1.1995.

By Notification dated 29.6.1985, the Government of West Bengal,
F Department of Food and Supplies, brought out I8 Officers of the Food and
Supplies, who have completely passed the departmental examination. In serial
No.5 one Ratan Kumar Mukhopadhayay is shown to have passed the
departmental examination on 26.7.77. Therefore, it is not correct to say that
the requirement of departmental examination was for the first time introduced
G by Notification dated 10.1.1995.

Mr.Altaf Ahmad referred to the decision of this Court in Jagidsh Kumar
v. State of H.P., [2005] I3 SCC 606, particularly paragraph 16. The aforesaid
decision is not relatable to appointment on probation and will be of no help
to the respondents' case.
H
SHANA KR DEB ACHARY Av. BISWANATH CHAKRABORTY [HKSEMA, J.] 669

On the question of departmental examination vis-a-vis reckoning of A
·seniority, he has referred to the decision rendered by this Court in M.H. Patil
v. State of Maharashtra, [ l 999] 1 SCC 249. This Court referred to Rule 3,
which was relied upon by the appellant in the case; the same is reproduced
as under:

"3. Seniority among the Non-Gazetted Prohibition and Excise Officers B
and Clerks for the purpose of confirmation shall be decided according
to the dates of their passing the departmental examination held after
completion of one year's continuous service in the Prohibition and
Excise Department".

This Court accepted the view of the department that the seniority lists C
were prepared on the basis of continuous officiation right from 1977 onwards.
The seniority lists so prepared were not disturbed, notwithstanding Rule 3
prescribing the fixation of seniority otherwise. Therefore, no law has been laid
down which can be followed as a precedent.

There is yet another difficulty to sustain the order of the High Court.
D
The High Court has also relied on the communication dated 31.7.1978 wherein
an Assistant Secretary in a departmental communication has stated that none
of the direct recruits were working in the department as Probationary Officers.
Such departmental communication has no role to play in the face of statutory
rules. E
For the reasons aforestated, we are unable to sustain the impugned
order of the High Court. The judgment and order dated 11.12.2002 passed
in WPST No.1044 of2002 is set aside. The Notification dated 28.3.2001 issued
pursuant to a writ of mandamus by the earlier Division Bench of the High
Court is restored. The appeals are allowed. No costs. F
V.S.S. Appeal allowed.