Supreme Court of India
STATE OF UTTARANCHAL AND ORS.versusSIDHARTH SRIVASTAVA AND ORS.
- Citation
- 2003 INSC 299
- Decided
- 5 June 2003
- Disposal
- Appeal(s) allowed
- Bench
- SHIVARAJ V PATIL
Holding
The recommendations of the Uttar Pradesh Public Service Commission are not binding on the State of Uttaranchal and cannot compel it to make appointments.
Summary
After the Uttar Pradesh Reorganisation Act, 2000 created the new State of Uttaranchal, the Uttar Pradesh Public Service Commission (UPPSC) had already selected candidates for 544 J.E. Civil/Technical posts and sent its recommendations to the Uttar Pradesh Government, which forwarded them to Uttaranchal. The Uttaranchal Government issued an order refusing to appoint those candidates, citing a different reservation policy and practical difficulties. The candidates filed writ petitions; the Uttaranchal High Court held the UPPSC recommendations were binding on the new state and directed appointments. On appeal, the Supreme Court examined the constitutional provisions on State Public Service Commissions (Arts. 315, 320, 323) and Section 78(4) of the Reorganisation Act, concluding that the UPPSC was not a joint commission and its recommendations could not compel Uttaranchal to make appointments. The Court held that the new state must constitute its own Public Service Commission and that the UPPSC recommendations had no legal force over Uttaranchal. Consequently, the Supreme Court set aside the High Court judgment and allowed the appeals, upholding the Uttaranchal Government’s order.
Issues considered
- Whether the recommendations of the Uttar Pradesh Public Service Commission made before the formation of Uttaranchal are binding on the newly created State of Uttaranchal.
- Whether Section 78(4) of the Uttar Pradesh Reorganisation Act, 2000 obliges the Governor of Uttaranchal to lay the UPPSC report before the Uttaranchal Legislature, thereby making the recommendations binding.
- Whether the change in reservation policy under the Uttar Pradesh Services (Reservation) Act, 1994 can be overridden by Uttaranchal.
- Whether a candidate placed in the merit list has an indefeasible right to appointment.
Legislation cited
- Uttar Pradesh Reorganisation Act, 2000s. 2(e), s. 78(4), s. 86
Subjects
Public Service CommissionState ReorganisationReservation PolicyArticle 315Section 78AppointmentBinding RecommendationsUttaranchalUttar PradeshConstitutional Law
Judgment
A STATE OF UTTARANCHAL AND ORS.
v.
SIDHARTH SRIVASTAVA AND ORS.
JUNE 5, 2003
B [SHIVARAJ V. PATIL AND AR!JIT PASAYAT, JJ.)
Service Law:
UP. Reorganisation Act, 2000-Sections 2(e), 78(4) and 86---State Public
C Service Commission-Selection for certain posts by Uttar Pradesh Public
Service Commission (UPPSC)-Recommendations forwarded to UP.
Government-Subsequently, reorganization of State and constitution of State
of Uttaranchal-Thereafter, UP. Government forwarding recommendations
of UPPSC in respect of selection of post to Government of Uttaranchal-
D Government of Uttaranchal refusing to appoint candidates selected by UPPSC
in view of new reservation policy being different from that of Uttar Pradesh
and practical and legal difficulties in giving effect to appointments
recommended by UPPSC-Challenge to the order-High Court holding that
recommendations made by UPPSC of erstwhile State of UP. binding on new
State of Uttaranchal-On appeal, held: In view of constitutonal provisions
E and Section 78(4) the recommendations of UPPSC are not binding to compel
the State of Uttaranchal to give appointments to the candidates recommended
by the UPPSC-Also since UPPSC is not joint commission for two States,
selection of candidates made by it cannot be accepted as selections made for
State of Uttaranchal under Section 78(4)-Constitution ofIndia, 1950-Artic/es
p 2, 315(2), 320 and 323.
Uttar Pradesh Public Service Commission (UPPSC) through
advertisement invited applications for posts of J.E. Civilffechnical and
published the selection result. UPPSC then sent its recommendations to
the U.P. Government who thereafter forwarded it to Chief Engineer's
G office, Hill Cadre. Thereafter, separate State of Uttaranchal came into
existence. U.P. Government then forwarded the UPPSC recommendations
in respect of posts in Hill Cadre to the Government of Uttaranchal.
Government of Uttaranchal issued an order not to appoint the selected
candidates since the new reservation policy of the State of Uttaranchal
was different from that of U.P. and in such a situation there were practical
H 278
STATEv. SIDHARTHSRIVASTAVA 279
and legal difficulties in giving appointments to the candidates A
recommended by the UPPSC. Candidates who were selected filed writ
petitions. Division Bench of the High Court held that the recommendations
made by the UPPSC of the erstwhile State of U.P. were binding on new
State of Uttaranchal. It allowed tbe writ petitions and directed the State
of Uttaranchal to give appointments to the writ petitioners. Hence the B
present appeals.
Appellants contended that under section 78(4) of the U.P.
Reorganisation Act, 2000 Governor of Uttar Pradesh would cause the
report of UPPSC alongwith memorandum explaining the reasons for non-
acceptance of the advice of the Commission to be laid before the C
Legislature of State of U.P and it would not be necessary for Governor of
Uttaranchal to lay it before the Legislative Assembly of State of
Uttaranchal because UPPSC was not a joint Commission since State of
Uttaranchal was not even in existence and no functions could be rendered
by the pre-existing UPPSC in respect of the new State of Uttaranchal; that
since the report need not be laid before the Legislative Assembly of the D
State of Uttaranchal, the report of the UPPSC is not binding upon the State
of Uttaranchal and it would have to constitute its own Public Service
Commission for the purpose of discharging constitutiGnal duties vide
Article 315; that the order passed by the Government that after the
constitution of the State of Uttaranchal, that the reservation policy having E
been changed, the candidates recommended by the UPPSC should not be
appointed in various departments of the Government of Uttaranchal, is a
valid decision and consistent with the autonomy and the freedom of the
executive action enjoyed by a newly-born State; that assuming that the
U.P. Service (Reservation in favour of Scheduled Castes and Sche~uled
Tribes and Other Backward Classes) Act, 1994 continued to be in force F
within the territories of Uttaranchal, it does not oblige the State of
Uttaranchal to follow a similar policy of reservation; that the High Court
erred in construing the relevant constitutional provisions and Section 78(4)
of the Act in judging the validity of the order of State of Uttaranchal; that
even though a person is placed in the merit list of selected candidates, he G
does not have an indefeasible right to be appointed; that the validity of
the State action in these appeals must be viewed with reference to the
creation of a new State and its commitment to make appointments to the
public services within the State on the basis of the recommendations of
the Public Service Commission, though, there cannot be any arbitrary
refusal to appoint, there must be a nexus between the existence of a Public H
280 SUPREME COURT REPORTS (2003] SUPP. I S.C.R.
A Service Commission for a State and its recommendations before the State
Government; and that re-organisation of a State is an event which
necessarily alters the existing State affairs, merely because tbe Governor
of the State of U.P. did not reverse the report of the UPPSC did not oblige
the State of Uttaranchal to make appointments of the candidates selected
B by UPPSC.
Respondents contended that for the Governor of Uttar Pradesh, it
was mandatory to place the report of UPPSC before the Legislative
Assembly of U. P., and in case of Governor of Uttaranchal it is not
obligatory but discretionary to place the report before Uttaranchal
C Legislative Assembly, thus there is no prohibition to cause such report to
be laid before Uttaranchal Assembly if the Governor so desires; that the
order of the State of Uttaranchal of not appointing candidates selected
by UPPSC cannot be justified on the basis of Section 78( 4) of the Act; that
the order is not based on Section 78(4) of the Act but based on the change
of the reservation policy by the new State of Uttaranchal; that the State
D cannot add such fresh reasons subsequently in the shape of an affidavit
or otherwise and that when the statutory functionary makes an order
based on certain grounds, its validity must be judged by the reasons so
mentioned and cannot be supplemented by fresh reasons; that the
reservation policy of the State of U.P. is embodied in the Uttar Pradesh
E Services (Reservation for Scheduled Castes, Scheduled Tribes and Other
Backward Classes) Act, 1994 continues to remain in force in Uttaranchal
in terms of Section 86 of the Act as it has not been amended or repealed
by the Uttaranchal Legislature, thus the order passed by Government of
Uttaranchal cannot prevail over U.P. Act, 1994; that the High Court
rightly held that the reasons given in the order of State of Uttaranchal
F are not valid; that the affidavit of the U.P. Government shows that it had
accepted the recommendations of the UPPSC, correspondence between
Chief Engineer and UPPSC being prior to the formation of the new State
of Uttaranchal, no further acceptance of the Uttaranchal Government was
required; that the Uttaranchal Government has been making
G appointments of candidates selected by the UPPSC even after U.P. State
was re-organised establishes that the Uttaranchal State considered the
recommendations of the UPPSC prior to re-organisation as valid and
binding, thus, it cannot resile from this position subsequently and is not
only inconsistent and arbitrary but also lacks bona fide; that the selection
and appointment has to be made in accordance with the rules in force at
H the time of initiation of the selection process, i.e. publication of
STATE v. SIDHARTH SRIVASTAVA 281
advertisement and, therefore, change of reservation policy subsequent to A
the selection cannot come in the way of earmarked vacancies for the Hill
Region of U.P. which became an integral part of the State of Uttaranchal
on the appointed day; and that when there were vacancies and the
candidates were selected in accordance with the law by UPPSC and there
was urgent need to fill up the said vacancies, it is wholly arbitrary on the B
part of the appellants not to fill up the vacancies by the candidates
recommended by the UPPSC and going in for fresh recruitment by passing
the Public Services Commission.
Allowing the appeals, the Court
HELD: 1. In view of the constitutional provisions and Section 78(4) C
of the Uttar Pradesh Reorganisation Act, 2000 the recommendations of
the Uttar Pradesh Public Service Commission (UPPSC) are not binding
to compel the State ofUttaranchal to give appointments to the candidates
recommended by the UPPSC. [298-B; E, F[
D
2.1. Uttar Pradesh Public Service Commission of the existing State
of Uttar Pradesh shall be the Public Service Commission for the State of
Uttar Pradesh and not for the State of Uttaranchal. If it were to be so,
provisions could have been made in Section 2 read with Section 78 of the
Act to include State of Uttaranchal within the domain of UPPSC till such
time Uttaranchal State Public Service Commission came into existence. E
Furthermore, UPPSC is not a joint Commission for the States of Uttar
Pradesh and Uttaranchal since State of Uttaranchal did not take recourse
to Article 315(2) of the Constitution to have a joint Public Service
Commission for both the States. Hence, the selection of the candidates
made by UPPSC cannot be accepted as selection made for the State of F
Uttaranchal in the light of Section 78( 4) under which there is no legislative
command or compulsion to the Governor of State of Uttaranchal to place
report submitted by UPPSC alongwith the memorandum before the
Legislative Assembly of the State of Uttaranchal. The submission that there
was no prohibition from placing the report sent by UPPSC to the
Government of Uttaranchal and memorandum containing explanation G
before the State Legislature of Uttaranchal cannot be accepted.
Furthermore, the State of Uttaranchal was not in existence when the
UPPSC initiated the selection process for the posts in question and no
functions could be rendered by pre-existing UPPSC in respect of new State
of Uttaranchal. [296-G, H; 297-B-H[
H
282 SUPREME COURT REPORTS 12003] SUPP. I S.C.R.
A 2.2. State of Uttaranchal would have to constitute its own Public
Service Commission to meet the constitutional requirement for the purpose
of discharging its duties under Article 315 and the appointment to services
will be in consonance with Articles 315, 320 and 323 of the Constitution
consistent with autonomy and the freedom of executive action enjoyed by
B newly born State of Uttaranchal. Under Section 78 of the Act dealing with
State Public Service Commission provisions are made for protection of
service conditions and services of the persons already in service. There is
no such provision protecting the selection made by the UPPSC prior to
the formation of the new State of Uttaranchal to contend that the
candidates selected by the U PPSC shall be appointed by the State of
C Uttaranchal. Therefore, the communication of the Government of Uttar
Pradesh or UPPSC forwarding list of selected candidates to the appellant-
State has no legal sanctity or force to bind the State of Uttaranchal so as
to compel it to appoint the non-official respondents. (298-C, D, Ef
2.3. It is evident from the order that after thorough consideration,
D it has been decided that the candidates recommended by the UPPSC may
not be appointed in various Departments of the Government of
Uttaranchal. There is no express reference to Section 78(4) of the Act in
the order, but reading the order as a whole, it gives an impression that
after the constitution of the State of Uttaranchal, there has been change
E in the reservation policy; there were various miscellaneous and legal
difficulties in giving appointments to the candidates selected by the UPPSC
as forwarded by the Government of Uttar Pradesh. This being the position,
it appears that while passing the order, the provision of Section 78(4) and
other provisions of the Act and the relevant constitutional provisions w1:re
kept in mind. Mere non-reference or omission to mention of Section 78(4)
F in the order, does not take away its legal effect. The appellants have only
elaborated the reasons to support the said order. The reasons given in the
said order are valid and reasonable. It cannot be said that the State of
Uttaranchal arbitrarily or whimsically refused to give appointments to the
selected candidates.Thus, the view of High Court that the reasons given
in Government Order are not valid cannot be accepted. Further, the
G submission that the State cannot add fresh reasons to the order not to
appoint candidates selected by UPPSC subsequently in the shape of
affidavit or otherwise and that when a statutory functionary makes an
order based on certain grounds, its validity must be judged only by reasons
so mentioned cannot be accepted. (300-G, E-H; 301-A, Bf
H
STATE v. SIDHARTH SRIVASTAVA 283
MS. Gill and another v. Chief Election Commissioner. New Delhi and A
Ors., 1197812SCR272; Asha Kaul (Mrs) and Anr. v. State of Jammu and
Kashmir and Ors., 119931 2 SCC 573 and Shankarasan Dash v. Union of
India, 119911 3 SCC 47, referred to.
2.4. Assuming that the reservation policy of the State of U.P. is
embodied in the Uttar Pradesh Services (Reservation for Scheduled Castes, B
Scheduled Tribes and Other Backward Classes) Act, 1994, the executive
order cannot override the U.P. Act of 1994 because C1e i;tate Act continues
to remain in force in Uttaranchal by virtue of the Section 86 of the Act, it
cannot be contended that as and when Uttaranchal St:de Public Service
Commission proceeds to make selection, the policy contained in the U.P. C
Act of 1994 is to be followed unless it is amended by the Legislature of
the State of Uttaranchal. Further, the submission that the State of
Uttaranchal has no right to have its own reservation policy to meet the
requirements of the new State having due regard to various factors cannot
be accepted. Moreover, when the selection made by the UPPSC itself is
not for the State of Uttaranchal and it has no legal or binding effect to D
compel the State of Uttaranchal to appoint the selected candidates, the
question of applying reservation policy as embodied in U.P. Act of 1994
does not arise. 1301-C, D, E]
2.5. The submission that the affidavit of the U.P. Government shows
that it had accepted the recommendations of the UPPSC, correspondence E
between Chief Engineer and UPPSC being prior to the formation of the
new State of Uttaranchal, no further acceptance of the Uttaranchal
Government was required cannot be accepted since the UPPSC
recommendations in relation to selection of the candidates have no legal
force and are not binding on the S;ate of Uttaranchal. Furthermore, a p
person placed in the merit list of selected candidates has no indefeasible
right to be appointed. No doubt, there cannot be an arbitrary refusal to
appoint a selected candidate. In the instant case, the action of the State of
Uttaranchal must be judged with reference to the creation of new State
and its functions, obligations and duties to make appointments to the public
services within the State on the basis of the recommendations of the Public G
Service Commission of the State. There was no advertisement by the State
of Uttaranchal, no rules were framed by the State of Uttaranchal, no
selection was made by Public Service Commission for the State of
Uttaranchal. Hence, the State of Uttaranchal was not obliged to make
appointments of the non-official respondents on the basis of the selection H
284 SUPREME COURT REPORTS (2003] SUPP. I S.C.R.
A made by the UPPSC even though the recommendations were forwarded
to the State of Uttaranchal. Further, it is not a case where the Government
of Uttaranchal has refused to make appointments arbitrarily.
(301-F, G, H; 302-A, B, DI
B 2.6. If any appointments are made contrary to law and if there is
any malafide, they may affect such appointments on a proper challenge
by the aggrieved persons but that does not help the non-official
respondents to get them appointed by the State of Uttaranchal. (302-DI
2.7. It cannot be accepted that the selection and appointment has to
C be made in accordance with the rules in force at the time of initiation of
the selection process, i.e. publication of advertisement and, therefore,
change of reservation policy subsequent to the selection cannot come in
the way of earmarked vacancies for the Hill Region of U.P. which became
an integral part of the State of Uttaranchal. The rules in force at the time
of initiation of the selection process have to be applied in making selection
D but that does not help the non-official respondents in seeking appointments
by the State of Uttaranchal on the basis of selection made by UPPSC.
(302-E, F, GJ
P. Mahendran and Ors v. State of Karnataka and Ors., (199011 SCC
411 and NT. Devin Katti and Ors. v. Karnataka Public Services Commission
E and Ors., (19901 3 sec 157, referred to.
2.8. The submission that if there were vacancies and the candidates
were selected in accordance with the law by UPPSC and there was urgent
need to fill up the said vacancies, it is wholly arbitrary on the part of the
F appellants not to fill up the vacancies by the candidates recommended by
the UPPSC and going in for fresh recruitment cannot be accepted. The
selection made by UPPSC is not binding on the State of Uttaranchal, no
direction could be given to appoint the non-official respondents.
1302-G, H; 303-AI
G 2.9. The High Court drew inference from the order of State of
Uttaranchal that the Government of Uttaranchal denied acceptance of the
recommendations but did not deny to give appointment on the basis of
th·e recommendations of UPPSC as such the Governnment order could be
ignored, cannot be accepted. If the Government of Uttaranchal has denied
to accept the recommendations of UPPSC, essentially it follows that no
H
STATE v. SIDHARTH SRIVASTAVA 285
appointment could be given. Further, the order specifically stated that A
"therefore, in this regard after thorough consideration it has been decided
that the candidates recommended by the UPPSC may not be appointed
in various departments of the Government of llttaranchal". Furthermore,
merely because the said Government Order was issued after the appointed
day it could not be simply ignored without considering the legality and B
validity of that order, in the light of the relevant constitutional provisions
and provisions of the Act. The order exists unless it is quashed or it ceases
to operate for any other reason. Also the High Court wrongly interpreted
Section 78 of the Act. Merely because the recommendations received by
the erstwhile State of llttar Pradesh had been sent to State of llttaranchal
and they were not reversed by the Governor for being placed with the C
reasons before the Assembly of State of llttar Pradesh under Section 78
of the Act, it cannot be held that the recommendations made by the UPPSC
were binding on Government of Uttaranchal. [304-E, F, G; 305-E, F[
3. The order passed by State of Uttranchal will not come in the way
of the State of llttar Pradesh to consider the claims of the non-official D
respondents for appointments based on the selection made by UPPSC. In
case the non-official respondents apply as and when the applications are
invited for selection either by UPPSC or by the Uttaranchal State Public
Service Commission in future within a period of three years, the UPPSC
or the Uttaranchal State Public Service Commission shall consider them E
for selection subject to their satisfying all other eligibility requirements
but relaxing the upper age limit. [306-A, B]
CIVIL APPELLATE JURISDICTION : Civil Appeal No. 4281-4289 of
2003.
F
From the Judgment and Order dated 16.11.2001 of the Uttaranchal
High Court at Nainital, in W.P. Nos. 829(S/B), 795(S/B), 803(S/B), 818(S/
B), 830(S/B), 831(S/B), 847(S/B), 857(S/B), 4271(S/S), of 2001.
WITH
C.A. Nos. 4280, 4279, 4278 of 2003. G
Gopal Subramanium, P.P. Rao, Ms. Rachna Srivastava, Rohit Singh,
Mrs. Bharati Reddy, Ajay K. Agarwal, Raj Kumar Gupta, Sheo Kumar Gupta,
A.N. Bardiyar, Yatish Mohan, Vishwajit Singh, K.L. Janjani, K.L. Taneja,
K.V. Mohan, A.K.Yadav, Ravi Prakash Mehrotra, Ms. Deepti R. Mehrotra,
Garvbesh Kabra, Vishwajit Singh, Ashok K. Srivastava, Arvind Kr. Shukla, H
286 SUPREME COURT REPORTS [2003] SUPP. I S.C.R.
A S. Chandra Shekhar and A.S. Pundir for appearing parties.
The Judgment of the Court was delivered by
SHIV ARAJ V. PA Tl L, J. Delay condoned in SLP (C) No. I0363/
2003(CC 1629/2003).
B Leave granted in all the SLPs.
These appeals are by the State of Uttaranchal assailing the common
judgment and order dated 6th November, 2001 passed by the Division Bench
of the High Court of Uttaranchal.
c Resolution of, the dispute in these appeals depends on the answer to the
question whether the selection made by the Uttar Pradesh Public Service
Commission, prior to fonnation of State of Uttaranchal, is binding on the
State of Uttaranchal so as to appoint selected candidates to the services in the
State of Uttaranchal having due regard to Article 323(2) of the Constitution
D of India and Section 78(4) of The Uttar Pradesh Reorganisation Act, 2000.
Uttar Pradesh Pub Iic Service Commission (UPPSC) published
advertisement inviting applications for 544 posts of J.E. Civil/Technical (507
Civil + 37 Technical). The result of selection was published on 4.1.2000. The
UPPSC sent its recommendations to the U.P. Government on 30.10.2000.
E The U.P. Government forwarded the recommendations on 31.I 0.2000 to the
Chief Engineer's Office, Hill Cadre, Almora. The separate State ofUttaranchal
came into existence on 9.11.2000. U.P. Government forwarded the UPPSC
recommendations in respect of posts in Hill Cadre to the Government of
Uttaranchal. On 29.8.2001, Government of Uttaranchal issued the order not
F to appoint the selected candidates mentioning two reasons that - (I) the new
reservation policy of the State of Uttaranchal is different from that of U.P.
and (2) practical and legal difficulties "in such a situation" in giving
appointments to the candidates recommended by the UPPSC. The selected
candidates, aggrieved by the same, filed a batch of writ petitions assailing the
said order, impleading State of Uttaranchal and its officers, State of Uttar
G Pradesh and its officers and UPPSC. The Division Bench of the High court,
by the common impugned judgment allowed the writ petitions and issued
direction to the State of Uttaranchal to give appointments to the writ petitioners.
The High Court took the view that the recommendations made by the UPPSC
of the erstwhile State of U.P. were binding on new State of Uttaranchal.
H On behalf of the appellants the following contentions were urged: -
STATE v. SIDHARTH SRIVASTAVA [PATIL, .I.] 287
(l) Under Article 323(2) of the Constitution of India, it shall be the A
duty of a State Public Service Commission to present annually
to the Governor of the State a report of the work done by the
Commission. The Governor shall, on receipt of such report, cause
a copy thereof together with a memorandum explaining, as
respects the cases, if a:iy, where the advice of the Commission
was not accepted, the reasons for such non-acceptance to be laid B
before the State Legislature of the State.
(2) Section 78( I) of The Uttar Pradesh Reorganisation Act 2000 (for
short 'the Act') declares that the Public Service Commission of
the existing State of Uttar Pradesh shall be the Public Service
Commission from the appointed day for the State of Uttar Pradesh. c
Section 78(4) clearly provides that the report of UPPSC would
be presented under Article 323(2) to the Governors of the States
of Uttar Pradesh and Uttaranchal. But it was the Governor of
Uttar Pradesh alone who was to cause the report alongwith
Memorandum explaining the reasons for non-acceptance of the D
advice of the Commission to be laid before the Legislature of the
State of U.P. The reason why the Legislature provided "it shall
not be necessary to cause such report or any such memorandum
to be laid before the Legislative Assembly of the State of
Uttaranchal" was because the UPPSC was not a joint Commission
since State of Uttaranchal was not even in existence and no E
functions could be rendered by the pre-existing UPPSC in respect
of the new State of Uttaranchal.
(3) In view of the express parliamentary intention that such a report
need not be laid before the Legislative Assembly of the State of
Uttaranchal suggests that the report of the. UPPSC is not binding F
upon the State of Uttaranchal which would have to constitute its
own Public Service Commission for the purpose of discharging
constitutional duties vide Article 315.
(4) Section 86 of the Act is a residuary provision. It deals with the
effects of the pre-existing laws. Even assuming, the U.P. Service G
(Reservation in favour of Scheduled Castes & Scheduled Tribes
and Other Backward Clauses) Act, 1994 continued to be in force
within the territories of Uttaranchal, it does not oblige the State
of Uttaranchal to follow a similar policy of reservation.
(5) The decision of the State of Uttaranchal dated 29.8.2001 not to H
288 SUPREME COURT REPORTS [2003) SUPP. I S.C.R.
A appoint the selected candidates on the recommendations of the
UPPSC is not an unconstitutional act and no fault can be found
with the said decision. For the purpose of appointment to public
services, the State of Uttaranchal is to have due regard to Article
315 of the Constitution. In view of Section 78(4) of the Act,
communication of the State of U.P. forwarding the list of
B candidates to the appellant State has also no legal force.
(6) The order passed by the Government that after the constitution
of the State of Uttaranchal, the reservation policy having been
changed and that a decision that candidates recommended by the
UPPSC should not be appointed in various departments of the
c Government of Uttaranchal, is a decision which is valid and
consistent with the autonomy and the freedom of the executive
action enjoyed by a newly-born State.
(7) The High Court committed an error in wrongly construing the
relevant constitutional provisions and Section 78(4) of the Act in
D judging the validity of the order dated 29.8.2001 of the State of
Uttaranchal.
(8) Re-organisation of a State is an event which necessarily alters
the existing State affairs. Merely because the Governor of the
State of U.P. did not reverse the report of the UPPSC did not
E oblige the State of Uttaranchal to make appointments of the
candidates selected by UPPSC.
(9) Even though a person is placed in the merit list of selected
candidates, he did not have an indefeasible right to be appointed
as held by this Court; validity of the State action in these appeals
F must be viewed with reference to the creation of a new State and
its commitment to make appointments to the public services within
the State on the basis of the recommendations of the Public
Service Commission. Though, there cannot be any arbitrary refusal
to appoint, there must be a nexus between the existence of a
Public Service Commission for a State and its recommendations
G before the State Government. In the present cases, there was no
advertisement by the State of Uttaranchal and no selection was
made by Public Service Commission of the State of Uttaranchal;
hence to rely upon recommendations of the UPPSC for
appointments to the erstwhile Hill Cadre would be legally
H apposite.
STATE v. SIDHARTH SRIVASTAVA [PATIL ,J.) 289
Opposing these submissions and supporting the impugned judgment, A
submissions made on behalf of the respondents were;-
(I) The decision dated 29 .8.200 I of the State of Uitaranchal cannot
be justified on the basis of Section 78(4) of the Act. As can be
seen from the said decision, it is not based on Section 78(4) of
the Act but based on the change of the reservation policy by the B
new State of Uttaranchal; the State cannot add such fresh reasons
subsequently in the shape of an affidavit or otherwise. When the
statutory functionary makes an order based on certain grounds,
its validity must be judged by the reasons so mentioned and
cannot be supplemented by fresh reasons.
c
(2) The reservation policy of the State of U.P. is embodied in the
Uttar Pradesh Services (Reservation for Scheduled Castes,
Scheduled Tribes and Other Backward Classes) Act, 1994. The
said Act continues to remain in force in Uttaranchal in terms of
Section 86 of the Act as it has not been amended or repealed by
the Uttaranchal Legislature. The executive decision dated D
29.8.2001 cannot prevail over U.P. Act, 1994. Consequently, the
decision dated 29.8.2001 was unsustainable.
(3) The affidavit of the U.P. Government shows that it had accepted
the recommendations of the UPPSC. The letter of Chief Engineer,
Uttaranchal, PWD, Almora dated 4.1.2001 refers to the letter of E
UPPSC dated 30.10.2000 to the Chief Engineer, PWD, and the
subsequent letter dated 7.11.2000 of the UPPSC to the Chief
Engineer, Almora, both were prior to the re-organisation.
Therefore, no further acceptance by the Uttaranchal Government
was involved in these cases. F
(4) The further fact that Uttaranchal Government has been making
appointments of candidates selected by the UPPSC even after
U.P. State was re-organised vide appointment letters dated
28.9.2000 and dated 1.3.2001 establishes that the Uttaranchal
State considered the recommendations of the UPPSC prior to re- G
organisation as valid and binding. It is not open to the State
Government to resile from this position subsequently.
(5) The conduct of Uttaranchal Government in making some
appointments and refusing to make other appointments
recommended by the UPPSC is not only inconsistent and arbitrary H
290 SUPREME COURT REPORTS [2003] SUPP. I S.C.R.
A but also lacks bona fide. The object behind the decision of
29.8.2001 appears to be to bypass the constitutional requirement
as well as the recruitment rules made under Article 309 of making
appointments only through the Public Service Commission.
(6) Section 78(4) requires the report of the UPPSC as to the work
B done by the Commission prior to the date of re-organisation
shall be presented under Article 323(2) not only to the Governor
of U.P. but also to the Governor of the State of Uttaranchal.
While for the Governor of Uttar Pradesh, it was mandatory to
place the report of the UPPSC before the Legislative Assembly
of U.P., in the case of the advice of the Commission was not
c accepted in some cases as far as the Governor of Uttaranchal is
concerned, it said that "it shall not be necessary" to cause such
report or any such memorandum to be laid before the Legislative
Assembly of the State of Uttaranchal. The words "it shall not be
necessary" only mean that it is not obligatory but discretionary.
D There is no prohibition to cause such report or a memorandum
to be laid before Uttaranchal Assembly ifthe Governor so desires.
Parliament in exercise of powers mandated the UPPSC to present
its report to the Governor of Uttaranchal also shows its clear
intention that recommendations of the UPPSC are equally binding
on Uttaranchal as well.
E
(7) The absence of mandatory legislative check in the case of
Uttaranchal, does not in any way affect the accountability of the
State Government to the judiciary in the instant case which is an
independent constitutional requirement. The High Court was right
in holding that the reasons given in the decision of the
F Government of Uttaranchal dated 29.8.2001 are not valid.
(8) As held in P. Mahendran and Ors. v. State of Karna/aka and
Ors., [1990] 1 SCC 411 and N. T. Devin Katti and Ors. v.
Karnataka Public Service Commission and Ors., [1990] 3 SCC
157] selection of appointment has to be made in accordance with
G the rules in force at the time of initiation of the selection process
i.e. the publication of advertisement. Therefore, change of
reservation policy subsequent to the selection cannot come in the "
I
way of making appointments on the basis of the selection made .
by the UPPSC for the posts earmarked in the Hill Region of U.P.
which became an integral part of the State of Uttaranchal on the
H
STATE v. SIDHARTH SRIVASTAVA [PATIL. J.) 291
appointed day. A
(9) When there are clear vacancies and there are candidates selected
in accordance with law by a constitutional body, namely, UPPSC
and there is urgent need to fill up the said vacancies, it is wholly
arbitrary on the part of the State not to fill up the vacancies by
the candidates selected and recommended by the UPPSC and B
going in for fresh recruitment bypassing the Public Service
Commission.
It is useful to notice the provisions of the Constitution of India and the
Act to the extent they are relevant, in examining the rival contentions, urged
on behalf of either side. C
RELEVANT PROVISIONS OF THE CONSTITUTION OF INDIA
"Article 2:- Admission on establishment of new States - Parliament
may by law admit into the Union, or establish, new States OI' such
terms and conditions as it thinks fit." D
Under Article 153, there shall be a Govemer for each State. The
executive power of the State shall be vested in the Governor and shall be
exercised by him either directly or through officers subordinate to him in
accordance with the Constitution. Under Article 168, for every State, there
shall be a Legislature. There shall be a High Court for each State as per E
Article 214.
"Article 309 - Recruitment and conditions of service of persons serving
the Union or a State:-" Subject to the provisions of this Constitution,
Acts of the appropriate Legislature may regulate the recruitment, and
conditions of service of persons appointed, to public services and F
posts in connection with the affairs of the Union or of any State:
Provided .............any such Act."
"Article 315. Public Service Commissions for the Union and for the
States - (I) Subject to the provisions of this article, there shall be a G
Public Service commission for the Union and a Public Service
Commission for each State.
(2) Two or more States may agree that there shall be one Public
Service commission for that group of States and if a resolution to that
effect is passed by the House, where there are two Houses, by each H
292 SUPREME COURT REPORTS (2003] SUPP. I S.C.R.
A House of the Legislature of each of those States Parliament may by
law provide for the appointment of a Joint State Public Service
Commission (referred to in this Chapter as Joint Commission) to
serve the needs of those States.
(3) Any such law as aforesaid may contain such incidental and
B consequential provisions as may be necessary or desirable for giving
effect to the purposes of the law.
(4) The Public Service Commission for the Union, if requested so to
do by the Governor of a State, may, with the approval of the President,
agree to serve all or any of the needs of the State.
c (5) References in this Constitution to the Union Public Service
Commission or a State Public Service Commission shall, unless the
context otherwise requires, be construed as references to the
Commission serving the needs of the Union or, as the case may be,
the State as respects the particular matter in question."
D
"Article 320 :- Functions of Public Service Commissions - (I) It shall
be the duty of the Union and the State Public Service Commissions
to conduct examinations for appointments to the services of the Union
and the services of the State respectively.
(2) It shall also be the duty of the Union Public Service Commission,
E
if requested by any two or more States so to do, to assist those States
in framing and operating schemes of joint recruitment for any services
for which candidates possessing special qualifications are required.
(3) The Union Public Service Commission or the State Public Service
Commission as the case may be, shall be consulted-
F
(a) on all matters relating to methods of recruitment to civil services
and for civil posts;
(b) on the principles to be followed in making appointments to civil
services and posts and in making promotions and transfers from
G one service to another and on the suitability of candidates for
such appointments, promotions or transfers;
(c)
(d)
H
STA TE v. SID HARTH SRI VASTAVA [PATIL, J.) 293
(e) ···················· A
(4)
(5)
Under Article 320, it shall be duty of the Union and the State Public
Service Commissions to conduct examinations for appointments to the services B
of the Union and the services of the State respectively. The Union Public
Service Commission or the State Public Service Commissions, as the case be,
shall be consulted on the matters enumerated under Article 320(3) which
include all matters relating to methods of recruitment to civil services and for
civil posts.
c
"Article 323 :- Reports of Public Service Commissions - (I) .............. .
(2) It shall be the duty of a State Commission to present annually to
the Governor of the State a report as to the work done by the
Commission, and it shall be the duty of a Joint Commission to present D
annually to the Governor of each of the States the needs of which are
served by the Joint commission a report as to tlie work done by the
Commission in relation to that State, and in either case the Governor
shall, on receipt of such report, cause a copy thereof together with a
memorandum explaining, as respects the cases, if any, where the E
advice of the Commission was not accepted, the reasons for such
non-acceptance to be laid before the Legislature of the State."
RELEVANT PROVISIONS OF THE UTTAR PRADESH
REORGANISATION ACT, 2000
F
"Section 2:- In this Act, unless the context otherwise requires:-
(a) to (d) ...................... .
(e) "existing State of Uttar Pradesh" means the State of Uttar Pradesh
as existing immediately before the appointed day;
G
(f) to U) ........................ "
Section 3:- "On and from the appointed day, there shall be formed a
new State to be known as the State of Uttaranchal comprising the
following territories of the existing State of Uttar Pradesh, namely:-
H
294 SUPREME COURT REPORTS [2003] SUPP. I S.C.R.
A Pauri Garhwal, Tehri Garhwal, Uttar Kashi, Chamoli, Dehradun,
Nainital, Almora, Pithoragarh, Udham Singh Nagar, Bageshwar,
Champawat, Rudraprayag and Hardwar districts,
And thereupon the said territories shall cease to form part of the
existing State of Uttar Pradesh."
B
Provisions as to services are made under Part VIII of the Act in Section
72 to 78. Under Section 77, the Central Government has power to give
necessary directions to the State Government ofU.P. and the State Government
of Uttaranchal for the purpose of giving effect to the foregoing provisions of
Part VIII.
c
Section 78:- "(I) The Public Service for the existing State of Uttar
Pradesh shall, on and from the appointed day, be the Public Service
Commission for the State of Uttar Pradesh.
(2) .................................. .
D (3) .................................. .
(4) The report of the Uttar Pradesh Public Service Commission as to
the work done by the Commission in respect of any period prior to
the appointed day shall be presented under clause (2) of article 323
to the Governors of the States of Uttar Pradesh and Uttaranchal, and
E
the Governor of the State of Uttar Pradesh shall, on receipt of such
report, cause a copy thereof together with a memorandum explaining
as far as possible, as respects the cases, if any, where the advice of
the Commission was not accepted, the reasons for such non-acceptance
to be laid before the Legislature of the State of Uttar Pradesh and it
F shall not be necessary to cause such report or any such memorandum
to be laid before the Legislative Assembly of the State ofUttaranchal."
Section 86:-
"The provisions of Part II shall not be deemed to have affected any
G change in the territories to which the Uttar Pradesh Imposition of
Ceiling of Land Holding Act, 1961 and any other law in force
immediately before the appointed day, extends or applies, and
territorial references in any such law to the State of Uttar Pradesh
shall, until otherwise provided by a competent Legislature or other
competent authority be construed as meaning the territories within
H
STATE v. SI DHARTH SRIVASTAVA [PATIL . .1.] 295
the existing State of Uttar Pradesh before the appointed day." A
The facts that are not in dispute are:
The State of Uttaranchal was formed from 9.11.2000 as per Section 3
of the Act. UPPSC published advertisement inviting applications for 544
posts of J.E. Civil/Technical - (507 Civil + 37 Technical). The result of B
selection was published on 4.1.2000. UPPSC sent its recommendations to the
U.P. Government on 30.10.2000. The U.P. Government forwarded the
recommendations on 31. I0.2000 to the Office of the Chief Engineer, Hill
Cadre, Almora. Government of Uttaranchal, by order dated 29.8.2001, took
a decision not to appoint the candidates selected by the UPPSC pursuant to
selections made on 4. 1.2000 giving two reasons - (I) that the new reservation C
policy of the State is different from that of the State of U.P. and (2) there
were practical and legal difficulties "in such a situation" in giving appointments
to the candidates recommended by the UPPSC. The aggrieved candidates
filed writ petitions assailing the said order in the High Court of Uttaranchal
impleading State ofUttaranchal and its officers, State ofU.P. and its officers D
and UPPSC.
After Independence from time to time the States were reorganized,
created or carved out from an existing State for historical or administrative
and other reasons and at times consequent upon the demand/agitations of
people of particular region/area the States were reorganized or new States E
were formed for better administration, development and promotion of the
interest of particular region or area of a State keeping in mind the overall
development, needs and requirements of that region or area. Under Article 2
of the Constitution, Parliament may by law admit into the Union, or establish,
new States on such terms and conditions as it thinks fit. The Parliament F
passed the Act to provide for the reorganization of the existing State ofUttar
Pradesh and for matters connected therewith. As per Section 3 of the Act a
new State known as the State of Uttaranchal, comprising certain territories of
the existing State of Uttar Pradesh, was formed, which came into existence
from the appointed day being 9.11.2000.
G
Under the scheme of the Constitution there shall be Governor for each
State, there shall be a Legislature for every State and there shall be a High
Court for each State. So also there shall be a Public Service Commission for
each State under Article 315 of the Constitution. Article 315(2) provides that
two or more States may agree to have a joint Public Service Commission for
that group of States. As per the resolution of the State Legislatures, Parliament H
296 SUPREME COURT REPORTS [2003] SUPP. I S.C.R.
A may by law, in such case, provide for the appointment of a joint State Public
Service Commission. Further, the Public Service Commission for the Union,
if requested so by the Governor of a State, may, with the approval of the
President, agree to serve all or any of the needs of the States as per Article
315(4). We may notice here itself that State ofUttaranchal has neither agreed
B for appointment of a joint Public Service Commission under Article 315(2)
nor requested the Union Public Service Commission to serve its needs under
Article 315(4). Under Article 309, subject to the provisions of the Constitution,
Acts of the appropriate Legislature may regulate the recruitment, and conditions
of service of persons appointed, to public services and posts in connection
with the affairs of the Union or of any State. Under this provision the
C Legislature of the State of Uttaranchal, after coming into existence, has power
to regulate the recruitment, and conditions of service of persons appointed,
to the public services and posts in connection with the affairs of the State of
Uttaranchal.
Functions of the Public Service Commissions are enumerated in Article
D 320 of the Constitution. It shall be the duty of the Union and the State Public
Service Commission to conduct examinations for the appointments to the
services of Union and the services of the State respectively. The Union Public
Service Commission or the State Public Service Commission, as the case
may be, shall be consulted on all matters relating to methods of recruitment
E to civil services and for civil posts; on the principles to be followed in
making appointments to civil services and posts, etc.
Under Article 323(2) a duty is cast on a State Commission to present
annually to the Governor of the State a report as to the work done by the
Commission, and it shall be the duty of a joint Commission to present annually
F to the Governor of each of the State the needs of which are served by the
joint Commission. The Governor shall on receipt of such report, cause a copy
thereof together with a memorandum explaining, as respects the cases, if any,
where the advice of the Commission was not accepted, the reasons for such
non-acceptance to be laid before the Legislature of the State. As per Section
2(e) of the Act "existing State of Uttar Pradesh" means the State of Uttar
G Pradesh as existing immediately before the appointed day. Section 78(1) of
the Act clearly states that the Public Service Commission for the existing
State of Uttar Pradesh shall, on and from the appointed day, be the Public
Service Commission for the State of Uttar Pradesh. In other words, UPPSC
continues to be the Public Service Commission for the State of Uttar Pradesh
H only, excluding new State of Uttaranchal. Section 78(4) of the Act requires
STATE v. SIDHARTH SRIVASTAVA [PATIL ,.I.] 297
the UPPSC to present a report as to the work done by the Commission in A
respect of any period prior to the appointed day under Article 323(2) of the
Constitution to the Governors of the States of Uttar Pradesh and Uttaranchal.
But it specifically states that the Governor of the State of Uttar Pradesh shall,
on receipt of such report, cause a copy thereof together with memorandum
explaining as far as possible, as respects the cases, if any, where the advice B
of the Commission was not accepted, the reasons for such non acceptance to
be laid before the Legislature of the State of Uttar Pradesh and it shall not
be necessary to cause such report or any such memorandum .o lJ~ laid before
the Legislative Assembly of the State of Uttaranchal. UPPSC is not a joint
Commission for the States of Uttar Pradesh and Uttaranchal. The State of
Uttaranchal did not take recourse to Article 315(2) to have a joint Public C
Service Commission for both the States. Under Article 2 of the Constitution,
Parliament may by law admit into Union or establish new States on such
terms and conditions as it thinks fit. New State of Uttaranchal is formed on
the terms and conditions contained in the Act. The UPPSC of the existing
State of Uttar Pradesh shall be the Public Service Commission for the State
·of Uttar Pradesh as already stated above. It is not the Public Service D
Commission for the State of Uttaranchal. If it were to be so, provisions could
have been made in Section 2 read with Section 78 of the Act to include State
of Uttaranchal within the domain of UPPSC till such time Uttaranchal State
Public Service Commission came into existence. Hence, the selection of the
candidates made by UPPSC cannot be accepted as selection made for the E
State of Uttaranchal in the light of Section 78(4) of the Act. For the immediate
purpose, Section 78 of the Act dealing with the Public Service Commission
has to be looked into carefully. Under Section 78(4), there is no legislative
command or compulsion to the Governor of State of Uttaranchal to place
report submitted by UPPSC alongwith the memorandum explaining why advice
of the Commission was not accepted. The reason as to why the Parliament F
provided specifically that "it shall not be necessary to cause such report or
any such memorandum to be laid before the Legislative Assembly of the
State of Uttaranchal" appears to be that the UPPSC not being a joint
Commission and it being a Public Service Commission for the State of Uttar
Pradesh under Section 2(e) read with Section 78( I) of the Act, its report G
could not be placed before the State Legislature of Uttaranchal. State of
Uttaranchal was not in existence when the UPPSC initiated the selection·
process for the posts in question and no functions could be rendered by pre-
existing UPPSC in respect of new State of Uttaranchal. It was contended that
UPPSC sent the report to the Governor of Uttaranchal as required under
H
298 SUPREME COURT REPORTS [2003] SUPP. I S.C.R.
A Section 78: there was no prohibition from placing the said report and
memorandum containing explanation before the State Legislature of
Uttaranchal. We find it difficult in accepting this contention having due regard
to the language and contents of Section 78( 4) of the Act. A clear distinction
can be seen in the said provision. First part of tne provision speaks of UPPSC
B sending the report to both the Governors and second part requires the Governor
of Uttar Pradesh alone to cause the report and the memorandum to be laid
before the Legislature of State of Uttar Pradesh only. The express parliamentary
intention that such a report need not be laid before the Legislative Assembly
of the State of Uttaranchal makes the position clear that the report of the
UPPSC is not binding upon the State of Uttaranchal. The State of Uttaranchal
C would have to constitute its own Public Service Commission to meet the
constitutional requirement for the purpose of discharging its duties under
Article 315. Further, appointment to services in the State of Uttaranchal shall
have to be in consonance with Articles 315, 320 and 323 of the Constitution
consistent with autonomy and the freedom of executive action enjoyed by
newly born State of Uttaranchal. Part VIII of the Act contains Sections 72 to
D 78 dealing with services; Section 72 relates to All-India Services and Sections
73 to 76 with other services; Section 77 gives power to Central Government
to give directions. Provisions are made in Section 78 as to the State Public
Service Commission. In this Part, provisions are made for protection of service
conditions and services of the persons already in service. There is no such
E provision made in Section 78 protecting the selection made by the UPPSC
prior to the formation of the new State of Uttaranchal to contend that the
candidates selected by the UPPSC shall be appointed by the State of
Uttaranchal. Under these circumstances, the communication of the Government
of Uttar Pradesh or UPPSC forwarding list of selected candidates to :he
appellant-State has no legal sanctity or force to bind the State of Uttaranchal
F so as to compel it to appoint the non-official respondents.
The argument made on behalf of the respondents that the State cannot
add fresh reasons to the impugned order dated 29.8.200 I subsequently in the
shape of affidavit or otherwise and that when a statutory functionary makes
an order based on certain grounds, its validity must be judged only by the
G reasons so mentioned citing the case of MS. Gill and Anr. v. Chief Election
Co1•1missioner, New Delhi and Ors., [1978] 2 SCR 272 i;1-.not acceptable.
The said order reads:-
"No. I358/Personnel-2/200 I
H
STATE v. SIDHARTH SRIVASTAVA (PATIL, J.] 299
From: A
Rakesh Sharma
Secretary, Government of Uttaranchal
To,
All the Principal Secretaries/ Secretary,
Govt. of Uttaranchal B
Personnel Deptt. Dehradun Dated 29th August, 200 I
Subject: Action to the recommendations of me Public Service
Commission, U.P. for appointments in vario.1s departments.
Sir, c
I have been directed to state that after constitution of the
State of Uttaranchal, the Govt. of Uttar Pradesh has sent the
recommendations of the selected candidates by the Public Service
Commission, U.P. Allahabad for appointment to the various posts
in various departments of the Government of Uttaranchal. The D
said recommendations have been sent keeping in view the
departmental constitution and reservation position of the earlier
state of Uttar Pradesh, whereas after constitution of the State of
Uttaranchal the reservation policy has been changed. In such a
situation, there will be various miscellaneous legal difficulties in
giving appointments to the candidates, list of which has been E
sent by the Govt. of Uttar Pradesh in accordance with the
recommendations.
2. Therefore, in this regard after thorough consideration it has
been decided that the candidates recommended by the Uttar
Pradesh Public Service Commission may not be appointed in F
various departments of the Government of Uttaranchal.
3. Therefore it is requested to take further action accordingly.
Yours faithfully,
Sd/·illegible
(Rakesh Sharma) G
Secretary
No. (I) Personal-2/2001. of even dated Copy forwarded for information
and necessary action to:-
1. The Secretary of His Excellency the Governor of Uttaranchal.
H
300 SUPREME COURT REPORTS [2003] SUPP. I S.C.R.
A 2. The Secretary, Reconstitution, Govt. of Uttaranchal.
3. The Commissioner of Reconstitution, Govt. of Uttaranchal,
Lucknow.
4. The Secretary, Co-ordination, Govt. of U.P. Lucknow.
B 5. All the Sections of the Secretariat, Uttaranchal.
6. Departmental Book.
By Order
(Rakesh Sharma)
Secretary"
c It is evident from the above order that the consideration was made in
regard to the action to be taken on the basis of the recommendations of the
Public Service Commission, U.P., for appointments in various departments.
It is also stated therein that after the constitution of the State of Uttaranchal,
the reservation policy has been changed and there will be various miscellaneous
D legal difficulties in giving appointments to the candidates, list of which has
been sent by the Government of Uttar Pradesh in accordance with the
recommendations of UPPSC. In conclusion, it is said that after thorough
consideration, it has been decided that the candidates recommended by the
Uttar Pradesh Public Service Commission may not be appointed in various
Departments of the Government of Uttaranchal. It is true that there is no
E express reference to Section 78(4) of the Act in the aforementioned order.
But reading the order as a whole, it gives an, impression that after the
Constitution of the State of Uttaranchal, there has been change in the
reservation policy; there were various miscellaneous and legal difficulties in
giving appointments to the candidates selected by the UPPSC as forwarded
p by the Government of Uttar Pradesh and that after thorough consideration, a
decision was taken not to appoint the candidates recommended by the UPPSC
in various departments of the Government of Uttaranchal. This being the
position, it appears to us that while passing the order, the provision of Section
78(4) and other provisions of the Act and the relevant constitutional provisions
were kept in mind when there was thorough consideration before taking "
G decision as stated in the order. Mere non-reference or omission to mention
of Section 78(4) in the order, does not take away its legal effect. The appellants
have only elaborated the reasons to support the said order. It is not possible
to agree that the appellants tried to justify the aforementioned order by
subsequent fresh reasons. The High Court committed an error in holding that
H the reasons cited by the State Government of Uttaranchal in the order dated
STATE v. SI DHAR TH SRIVASTAVA [PATIL, J.) 301
29.8.2001 were not valid relying on the decision of this Court in Asha Kaul A
(Mrs.) and Anr. v. State of Jammu & Kashmir and Ors., [1993) 2 SCC 573,
in the light of the facts of the present case and in view of what is stated
above. This apart, in view of the discussion made above and having regard
to clear constitutional and legal position that the selections made by UPPSC
are not binding on the State of Uttaranchal on the basis of the facts that are B
not in dispute, the argument advanced on behalf of the respondents being
devoid of merit is rejected.
In terms of Section 86 of the Act, it was argued that the reservation
policy of the State of U.P. is embodied in the Uttar Pradesh Services
(Reservation for Scheduled Castes, Scheduled Tribes and Other Backward C
Classes) Act, 1994, the executive decision dated 29.8.200 I cannot override
the U.P. Act of 1994 (supra) because the State Act continues to remain in
force in Uttaranchal by virtue of the Section 86 of the Act. Assuming that be
the position, as and when Uttaranchal State Public Service Commission
procet:ds to make selection, the policy contained in the U.P. Act of 1994 is
to be followed unless it is amended by the Legislature of the State of D
Uttaranchal. It cannot also be contended that the State of Uttaranchal has no
right to have its own reservation policy to meet the requirements of the new
State having due regard to various factors. Moreover, when the selection
made by the UPPSC itself, as already stated above, is not for the State of
Uttaranchal and it has no legal or binding effect to compel the State of E
Uttaranchal to appoint the selected candidates, the question of applying
reservation policy as embodied in U.P. Act of 1994 does not arise.
Consequently, this contention also fails.
The other contention that the affidavit of the U.P. Government shows
that it had accepted the recommendations of the UPPSC, the letter of Chief F
Engineer, Uttaranchal, PWD, Almora dated 4.1.2001 referring to the letter of
UPPSC dated 30. l 0.2000 to the Chief Engineer, PWD and the letter dated
7.11.2000 of UPPSC to the Chief Engineer, Almora being prior to the
formation of the new State of Uttaranchal, no further acceptance of the
Uttaranchal Government was required. In view of the discussion already
made above that the UPPSC recommendations in relation to selection of the G
candidates have no legal force and are not binding on the State of Uttaranchal,
we find no merit in this contention as well. It may also be added here itself
that a person placed in the merit list of selected candidates has no indefeasible
right to be appointed as held by this Court. No doubt, there cannot be an
arbitrary refusal to appoint a selected candidate. In the instant case, the action H
302 SUPREME COURT REPORTS [2003[ SUPP. I S.C.R.
A of the State of Uttaranchal must be judged with reference to the creation of
new State and its functions, obligations and duties to make appointments to
the public services within the State on the basis of the recommendations of
the Public Service Commission of the State. As is clear from the facts in the
present case, there was no advertisement by the State of Uttaranchal, no rules
were framed by the State of Uttaranchal, no selection was made by Public
B Service Commission for the State of Uttaranchal. Hence, the State of
Uttaranchal was n0t obi iged to make appointments of the non-official
respondents on the basis of the selection made by the UPPSC even though the
recommendations were forwarded to the State of Uttaranchal. On the facts it
is not a case where the Government of Uttaranchal has refused to make
C appointments arbitrarily.
A grievance was made that Uttaranchal Government has been making
appointments arbitr:irily picking up some candidates selected by the UPPSC
even after the U.P. State was re-organised and is not making appointments of
other candidates selected Ly the UPPSC; there is lack of bona tides on the
D part of the State of Uttaranchal in making the order dated 29.8.2001. If any
appointments are made contrary to law and the stand taken by the State of
Uttaranchal and if there is any ma/a fide, they may affect such appointments
on a proper challenge by the aggrieved persons but that does not help the non-
official respondents to get them appointed by the State of Uttaranchal.
E It was also urged on behalf of the non-official respondents that the
selection and appointment has to be made in accordance with the rules in
force at the time of initiation of the selection process, i.e. publication of
advertisement and, therefore, change of reservation policy subsequent to the
selection cannot come in the way of earmarked vacancies for the Hill Region
F of U.P. which became an integral part of the State of Uttaranchal. This is an
untenable grievance in view of the discussion made above while dealing with
the question whether the selection made by UPPSC is binding on the State of
Uttaranchal. The rules in force at the time of initiation of the selection process
have to be applied in making selection but that does not help the non-official
respondents in seeking appointments by the State of Uttaranchal on the basis
G of selection made by UPPSC.
It was also urged that if there were vacancies and the candidates were
selected in accordance with the law by UPPSC and there was urgent need to
fill up the said vacancies, it is wholly arbitrary on the part of the appellants
not to fill up the vacancies by the candidates recommended by the UPPSC
H
STATE v. SIDHARTH SRIVASTAVA [PATIL, J.] 303
and going in for fresh recruitment. This submission is again without any A
force in law. When we have already held that the selection made by UPPSC
is not binding on the State of Uttaranchal, no direction could be given to
appoint the non-official respondents as is done by the High Court in the
impugned judgment.
In the impugned judgment the High Court held that the recommendations B
of Public Service Commission of erstwhile State of Uttar Pradesh for
appointment on the posts under Hill Sub Cadre Rules, 1992, which were
received prior to the appointed day by the State Government of erstwhile
State of Uttar Pradesh, are binding on the State of Uttaranchal, and, in that
view, directed the appellants to give appointments to the candidates selected C
and recommended by the UPPSC. The reasons recorded by the High Court
in doing so are: -
I. From the Government Order dated 29.8.2001, it is clear that the
Government of Uttaranchal denied to accept the recommendations
of UPPSC. It does not say that no appointment shall be given on D
the basis of recommendations of UPPSC. Therefore, the said
Government Order is liable to be ignored for the purpose of
giving appointment on the recommendations of UPPSC and in
that view there was no need to quash the said Government Order.
2. There is yet another reason for not quashing the said Government E
Order as the same has been issued after the appointed day and
the State of Uttaranchal has established its own Public Service
Commission. Now the appointments are to be made in consultation
with Uttaranchal Public Service Commission as per the changed
policy mentioned in the Government Order.
F
3. In view of a Constitution Bench judgment of this Court in
Shankarasan Dash v. Union of India, [1991] 3 SCC 47 and
Division Bench judgment of this Court in Asha Kaul (Mrs.) and
others v. State of Jammu and Kashmir and Ors., [1993] 2 SCC
573], though no indefeasible right for appointment can be claimed
on the basis of recommendations made by the Public Service G
Commission but equally the Government has no absolute right to
reject the recommendations and to refuse appointment to the
recommended candidates; there has to be valid and reasonable
ground for not accepting the recommendations of the Public
Service Commission for appointment on the posts for which the H
304 SUPREME COURT REPORTS (2003] SUPP. I S.C.R.
A selection was held by the Commission.
4. Though the impugned order dated 29.8.2001 was to be ignored
the reasons stated there for not accepting the recommendations
of the Commission are not valid reasons as those reasons were
not the reasons for not accepting the recommendations of the
B Public Service Commission.
5. The recommendations were made by the UPPSC and were duly
received by the State Government of erstwhile State of Uttar
Pradesh prior to the appointed day. The recommendations were
made strictly in accordance with the Rules then prevailed prior
c to the appointed day. Under Section 78 of the Act, in case of non
acceptance of the recommendations of the Commission the
Governor of Uttar Pradesh had to place the report before the
Uttar Pradesh Legislative Assembly for not accepting the
recommendations. Admittedly, all the recommendations received
by the erstwhile State of Uttar Pradesh have been sent to the
D State of Uttaranchal and they were not reversed by the Governor
for being placed with reasons before the Assembly of the State
of Uttar Pradesh.
The High Court misread the Government Order dated 29.8.2001 and
drew wrong inference in saying that the Government of Uttaranchal denied
E acceptance of the recommendations but did not say that no appointment shall
be given on the basis of the recommendations of UPPSC. If the Government
ofUttaranchal has denied to accept the recommendations ofUPPSC, essentially
it follows that no appointment could be given. This apart in the very order
in paragraph 2 it is specifically stated that "therefore, in this regard after
p thorough consideration it has been decided that the candidates recommended
by the UPPSC may not be appointed in various departments of the Government
ofUttaranchal". Thus, the reason given by the High Court that the Government
of Uttaranchal though denied to accept the recommendations of UPPSC but
did not deny to give appointment and as such the said Government Order
could be ignored, does not stand to reason and it is untenable.
G
The other reason given to ignore the said Government Order is that the
same was issued after the appointed day. Merely because the said Government
Order was issued after the appointed day it could not be simply ignored
without considering the legality and validity of that order, in the light of the
H relevant constitutional provisions and provisions of the Act. The order exists
STATE v. SIDHARTH SRIVASTAVA [PATIL. J.) 305
unless it is quashed or it ceases to operate for any other reason. A
There is no difficulty in accepting the principles laid down in the cases
of Shankarsan Dash and Asha Kaul (Mrs.) (supra). But the High Court failed
to apply those principles correctly to the facts of the present cases. As stated
by the High Court it is settled law that a candidate whose name is included
in the select list does not get indefeasible right for appointment on the basis B
of the recommendations made by the Public Service Commission, but at the
same time the Government has no absolute right to reject the recommendations
and refuse appointment to the candidates recommended without a valid and
reasonable ground for not accepting the recommendations of UPPSC. The
High Court found that the reasons given in the Government Order dated C
29.8.2001 were not valid reasons for not accepting the recommendations of
UPPSC. While discussing whether the recommendations of UPPSC are binding
on the State Government of Uttaranchal, keeping in view the constitutional
provisions and in particular Section 78(4) of the Act, we have already
expressed above that the recommendations of the UPPSC are not binding to
compel the State of Uttaranchal to give appointments to the candidates D
recommended by the UPPSC. It is not possible to accept the view of the High
Court that the reasons given in Government Order dated 29.8.200 I are not
valid. On the other hand, we find that the reasons given in the said order are
valid and reasonable. At any rate it cannot be said that the State ofUttaranchal
arbitrarily or whimsically refused to give appointments to the selected E
candidates.
The interpretation placed by the High Court on Section 78 of the Act
is also wrong. Merely because the recommendations received by the erstwhile
State of Uttar Pradesh had been sent to State of Uttaranchal and they were
not reversed by the Governor for being placed with the reasons before the F
Assembly of State of Uttar Pradesh under Section 78 of the Act, it cannot be
held that the recommendations made by the UPPSC were binding on
Government of Uttaranchal. In this regard we have already made the legal
position clear. Hence it is unnecessary to deal with the same any further. In
our view, looking to the reasons recorded by the High Court in the impugned G
judgment, which are neither tenable nor acceptable, the impugned judgment
cannot be allowed to stand.
It was also urged in the alternative that the State of Uttar Pradesh may
be directed to give appointments to the non-official respondents. This aspect
was neither raised before the High Court nor it was considered. Hence, we H
306 SUPREME COURT REPORTS (2003] SUPP. I S.C.R.
A do not wish to deal with the same. All that we can say is that this order shall
not come in the way of the State of Uttar Pradesh, if so advised, to consider
the claims of the non-official respondents for appointments based on the
selection made by UPPSC. Having regard to the peculiar situation in which
the non-official respondents are placed, we would like to say that in case the
B non-official respondents apply as and when the applications are invited for
selection either by UPPSC or by the Uttaranchal State Public Service
Commission in future within a period of three years, the UPPSC or the
Uttaranchal State Public Service Commission shall consider them for selection
subject to their satisfying all other eligibility requirements but relaxing the
upper age limit.
c Having due regard to all aspects and in the light of what is stated
above, the question set out in the beginning is answered in the negative.
Hence the impugned judgment and order of the High Court cannot be sustained.
In this view, we find merit in these appeals. They are entitled to succeed.
Accordingly, the impugned judgment and order are set aside and the appeals
D are allowed but with no order as to costs.
N.J. Appeals allowed.
•
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