TARSEM SINGH AND ANR.versusSTATE OF PUNJAB & ORS.

A                        TARSEM SINGH AND ANR.
                                         v.
                          STATE OF PUNJAB & ORS.

                                  JULY 12, 1994

B            (KULDIP SINGH AND YOGESHWAR DAYAL, JJ.]

           Service Law-Punj-1b Labour Department (State Service Class- III)
    Rules 196~Rule B(J)(a)(i}-Post of 'Labour lnspecto,-Promotion ofmin-
    isteiial staff-Whether Superintendents' in pay-scale of Rs.350-450 can seek
c   "promotion" to post of labour inspector having pay-scale of Rs. 200-450. Sug-
    gestion made forrevision of Rule 8( 1)(a)(i).

          Respondents were promoted to the post of Assistant in the Punjab
    Labour Department in 1975 and 1977 respectively. Appellant joined the
    department as Stenographer in 1976. Re-spondents were senior to the
D   appellants in the cadre of Assistant/Stenographer. Respondents were fur-
    ther promoted to the post of Superintendent in 1988. The appellants were
    promoted to the post of Labour Inspector Grade I under Rule 8(l)(a)(i)
    in 1991. The respondents challenged the promotion of the appellants
    before the High Court on the ground that the post of Superintendent held
E   by them, was a ministerial post and as such they being ministerial
    employees were entitled to be promoted to t~.e post of Labour Inspect~r .
    earlier to the appellants.

           The question for consideration was whether the Superintendents in •
    the pay-scale of Rs. 350-450 (revised Rs. 2000-3500) can seek "promotion"
F   to the post of Labour Inspector having the pay-scale of Rs. 200-450 (revised
    Rs. 1500-2600). The High Court answered the question in the alfermative.
    This appeal by way of special leave is against the judgments of the High
    Court.

          Allowing appeal, this Court
G
           HELD : 1.1. The language of Rule 8(l)(a)(i) of the Punjab Labour
    Department (State Service Class-III) Rules 1969 on the face of it is decep-
    tively ambiguous. There is no indication in the rule as to how and in what
    manner the promotions of such a large number of ministerial employees (16
H   cadres) to the cadre of labour inspector is to be regulated. (456-E; 457-A)
                                         452
                    TARSEM SINGHv. STATE OF PB.                        453

      1.2 Only those ministerial employees are eligible for promotion A
under Rule 8(l)(a)(i) who are in the pay-scale which is equal or.lower than
the pay scale of the post of the Labour Inspector. The State Government
was justified in issuing the instructions dated May 5, 1991 to the effect that
promotions to the posts of Labour Inspector Grade-II and Grade-I from
the ministerial cadre shall be from the incumbents holding the posts of B
lower scales or the same scale and the persons holding posts carrying
higher scale of pay shall be deemed to have forfeited their right to be
considered for promotion to the rank of Labour Inspector Grade-I. It is,
therefore, justifiable to hold that when an Assistant/Stenographer accepts
promotion to the post of Superintendent he would be deemed to have
foregone his option to be considered for the post of Labour Inspector.         C
                                                         [457-E-F; 458-C-D]
      1.3 The State Government is requested to reconsider the whole
question of promotion of ministerial employees to the post of Labour
Inspector afresh. It would be advisable to revise Rule (8)(l)(a)(i) by
proper application of mind. In case the post of Assistant/Stenographer        D
continues to be in the grade higher than that of Labour Inspector, it would
be open to the State Government to exclude the same as feeder category
for appointment as Labour Inspector by way of promotion under Rule
S(l)(a)(i) of the Rules. [459-A-B]

      1.4 In the instant case, since the post of Assistant/Stenographer has   E
always been considered to be a lower post than that of the Labour Inspec-
tor, this court is not inclined to interfere with the promotion of the
appellants to the post of Labour Inspector. [459-A]

      CIVIL APPELLANTE JURISDICTION : Civil Appeal Nos. 3335-                 F
36 of 1993.

     From the Judgment and Order dated 12.2.93 of the Punjab &
Haryana High Court in L.P.A.Nos. 6 & 7 of 1992.

     P.P. Rao, Anant Vijay Palli, Atul Sharma and Ms. Rina Agarwal for        G
Mrs. Rekha Palli for the Appellants.

      D.V. Sehgal, Bairam Gupta and A.K. Mahajan for the Respondent
Nos. 3 & 4.

      R.S. Yadav and G.K. Bansal for the Respondent                           H
    454                   SUPREME COURT REPORTS [1994] SUPP. 1 S.C.R.

A         The Judgment of the Court was delivered by

          KULDIP SINGH, J. The recruitment and conditions of service of
    person; appointed to Class Ill Service in the Punjab Labour Department
    are regulated by the statutory rules called the Punjab Labour Department
    (State Service Class III) Rules, 1969 (the Rules). Rule 8(1)(a)(i) of the
B   Rules is relevant for the purposes of these appeals. It would, however, be
    useful to reproduce rule 8(1) as a whole:-

            "8. Recruitment to the Service shall be made in the manner indi-
            cated below:-
c           I. Field and Technical Staff

            (a) Jn the case of Labour Inspectors-

           ; (i) by promotion from amongst the Wage Inspectors and mini-
             sterial employees who are members of the Punjab Labour Depart-
D
             ment (State Service Class III) having three years' experience of the
             working of labour laws as such;

            (ii) by transfer of a person who possesses educational and other
            qualifications as provided for in rule 9 and is already in the service
E           of the Government of India or of a State Government; and

            (iii) by direct appointment:

                Provided that 60 per cent of the vacancies shall be filled in by
            the method prescribed by sub-clause (i) (35) per cent out of Wage
F           Inspectors and 25 per cent out of ministerial employees mentioned
            in sub-clause (i) and 40 per cent of the vacancies shall be filled
            in by methods prescribed by sub-clauses (ii) and (iii) and the
            number of persons appointed by transfer shall not exceed 5 per
            cent of the total personnel recruited through the method of direct
G           appointment."

            The expression "ministerial employee" has not been defined under
    the rules. Appendix 'A' to the rules, however, mentions 16 posts including
    Superintendent, Head Assistant, Legal Assistant, Accountant, Assis-
    tant/Head Assistant, Stenographer etc. under the heading "ministerial
H   staff'. It is, therefore, assumed that all the persons who are working against
          TARSEMSINGHv. STATE OF PB. [KULDIPSINGH,J.]                     455

the 16 posts mentioned under the heading "miniterial staff' are ministerial      A
employees and, as such, are eligible for promotion to the post of Labour
Inspector. Appendix 'A' to the rules indicates the scales of pay- as initially
fixed - of various posts governed by the rules. The pay-scale for the post
of Labour Inspector, which is a part of the field and technical staff, was
Rs.200-10-300/15-450/. The pay-scales of the relevant ministerial staff were
                                                                                 B
as under:-

      1. Superintendent Rs.350-20-450

      2. Assistant/Head Clerk 116-8-180-10-250

      3. Stenographer 160-8-180-10-250
                                                                                 c
      The order of filling the vacancies in the cadre of Labour Inspectors
by promotion/direct appointment/transfer under the rules is as under:-

         "(1) Labour Inspectors (out of a block of twenty vacancies)             D
         By promotion of Wage Inspectors-1st 2nd, 6th, 10th, 11th, 14th and
         18th vacancy.

         By promotion of ministerial staff - 3rd, 9th, 13th, 17th and 19th
         vacancy.                                                                E
         By direct appointment including transfer - 4th, 5th, 7th, 8th, 12th,
         15th, 16th and 20th vacancy."

       Rule 10 of the rules provide that persons appointed to the service
shall remain on probation for a period of two years if recruited by direct       F
appointment and one year if recruited otherwise. The second proviso to
the rule, however, provides that the total period of probation including
extention, If any, shall not exceed three years. Rule 12 of the rules provides
that the seniority inter-se of the members of the service in each cadre shall
be determined by the continuous, length of service on a post in the cadre        G
of the service.

       The question for our consideration is whether the Superintendents
in the pay-scale of Rs.350-450 (revised Rs.2000-3500) can seek "promotion"
to the post of Labour Inspector having the pay-scale of Rs.200-450 (revised
Rs.1500-2640). A learned single Judge of the Punjab and Haryana High             H
                                                                                     j




    456                   SUPREME COURT REPORTS (1994] SUPP. 1 S.C.R.

A   Court has answered the question in the affirmative. The Letters Patent
    Bench has upheld the judgment of the learned single Judge. This appeal
    by way of special leave is against the judgments of the High Court.

          Naresh Kumar and Tarsem Kumar, respondents in the appeals
    herein, were promoted to the post of Assistant in the Punjab Labour
B
    Department on December 4, 1975 and February 17, 1977 respectively,.
    Tarsem Singh - appellant, joined the department as Stenographer on
    March 15, 1976. Roshan Lal - appellant, was promoted to the post of
    Assistant on March 3, 1977. It is not disputed that Naresh Kumar and
    Tarsem Kumar were senior to the appellants in the cadre of Assis-
c   tant/Stenographer. The respondents were further promoted to the post of
    Superintendent on July 22, 1988. The appellants were promoted to the post
    of Labour Inspector Grade I under rule 8(1)(a)(i) of the rules on May 8,
    1991. The respondents challenged the promotion of the appellants to the ·
    post of Labour Inspector by way of a writ petition before the High Court
D   on the ground that the post of Superintendent held by them, was a
    ministerial post and as such they being ministerial employees were entitled
    to be promoted to the post of Labour Inspector earlier to the appellants.
    As mentioned above, this contention of the respondents was accepted by
    the High Court.

E         We are constraint to say that the language of rule 8(1)(a)(i) on the
    face of it is deceptively ambiguous and, has led to this unnecessary litiga-
    tion between the employees. Often, we come across statutory rules/execu-
    tive instructions, purporting to regulate the conditions of service of the
    government employees, which are drafted in such a casual manner that they
F   create problems for the employees rather than straightening their service
    - conditions. Lack of application of mind is writ large on most of the
    statutory rules/executive instructions regulating the recruitment and condi-
    tions of service of the employees. It is high time that the concerned
    government authorties should have a fresh look at the existing rules/execu-
    tive instructions with a view to make them simple and easy to operate.
G
            Rule 8(1}(a)(i) of the rules provides that 25 per cent of the posts of
     Labour Inspector are to be filled by way of promotion from amongst the
     ministerial employees. There are 16 cadres under the heading "ministerial
     staff', employing large number of persons. Every ministerial employee can
H ._ stake his claim to be considered for promotion to the post of Labour
          TARSEM SINGHv. STATE DFPB. [KULDIP SINGH,J.)                 457

Inspector. There is no indication in the rule as to how and in what manner A
the promotions of such a large number of ministerial employees to the
cadre of Labour Inspector is to be regulated.

      A person holding the post of Superintende.nt. may be a "ministerial
employee" but unless his appointment to the post of Labour Inspector can       B
be made by way of promotion, he is not eligible under Rule 8(1)(a)(i) of
the Rules. Promotion as understood under the service law jurisprudence
means advancement in rank, grade or both. Promotion is always a step
towards advancement to a higher posiiion, grade or honour. Opting to
come to a lower pay-scale or to a lower post cannot be considered a
promotion, it is rather a demotion. A Superintendent in the Labour             C
Department who is holding a higher pay-scale and higher status cannot
seek promotion to the post of Labour Inspector which post is lower i11·
grade and status. Since a ministerial employee - under Rule 8(1)(a)(i}-
can be appointed Labour Inspector only by the process of promotion, a
Superintendent, who is in a higher pay-scale, cannot seek promotion to the     D
post of Labour Inspector and as such is not eligible for the same under
Rule 8(1)(a)(i). Even otherwise it is difficult to comprehend why a person
drawing a. higher pay-scale and enjoying a better status as a civil 'Servant
should hanker for a post which is carrying lesser pay and is comparatively
of lower status. We are, therefore, of the view that only those ministerial
employees are eligible for promotion under Rule 8(1)(a)(i) who are in the      E
pay-scale which is equal or lower than the pay-scale of. the post of the
Labour Inspector. The State Govermnent was justified in issuing the in-
structions dated May 5, 1991 to the effect that promotions to the posts of
Labour Inspector Grade-II and Grade-I from the ministerial cadre shall
be from amongst the incumbents holding the posts of lower scales or the        F
samt; scale and the persons holding posts carrying higher scale of pay shall
be deemed to have forfeited their right to be considered for promotion to
the rank of Labour Inspector Grade-I. The High Court fell into patent
error in holding that the instructions ran counter to the prGvisions of Rule
8(1)(a)(i) of the Rules. When examined in view of the meaning given by us
to the expression "promotion", the instructions are only supplemental to the   G
Rules and are not contrary to the same.

      We may examine the question from another angle. The appellants
and the respondents were working as Assistants/Stenographers and were
ministerial employees in the service of the Labour Department of the H
    458                  SUPREME COURT REPORTS (1994] SUPP. 1 S.C.R.

A   Punjab Government. The respondents were promoted to the post of Su-
    perintendent in the year 1988. Thereafter some more persons may have
    been appointed as Superintendents by way of transfer or by direct recruit·
    ment. If the respondents, after holding the post of Superintendent for more
    than three years, are permitted to seek appointment as Labour Inspectors
    and the appellants in turn are promoted as Superintendent then an
B   anomalous situation regarding seniority may arise. It may not be possible
    to appoint the appellants in place of the respondents with retrospective
    effect from the year 1988 as, meanwhile, some persons may have been
    appointed as Superintendents by direct recruitment or by way of transfer.
    The appellants are bound to be given seniority below these persons. In any
C   case it would be difficult rather imposible to operate the rnles
    homogenously. It is, therefore, justifiable to hold that when an Assis-
    tant/Stenographer accepts promotion to the post of Superintendent he
    would be deemed to have foregone his option to be considered for the post
    of Labour Inspector.
D
         It was argued by the learned counsel for the respondents that as at
  present the pay-scale of the post of Assistant/Stenographer is higher than
  that of'Labour Inspector and, as such, even the appellants are not eligible
  for promotion to the post of Labour Inspector under Rule 8(1)(a)(i). It is
  no doubt correct that as a result of re-revision of the pay-scales the
E Assistants/Stenographers have been given a higher pay-scale. According to
  the Labour Commissioner the matter regarding the revision of the pay-
  scale of the Labour Inspectors vis-a-vis Assistant/Stenographer is still
  under consideration. It is not disputed that till January 1, 1986 the Assis-
  tants/Stenographers were in a lower pay-scale as co;,,pared to the Labour
F Inspectors and from the date, on the recommendation of the Third Pay
  Commission, Assistants/Stenographers/Labour Inspectors Grade I were
  given the pay-scales of Rs.1500-2640. Thereafter on further representation
  by the ministerial staff and on the recommendation of the Anomalies
  Committee the Government has re-revised the pay-scale of Assis-
  tants/Stenographers to Rs. 1800-3200 by the rules which came into force
G on June 15, 1990. The pay-scale of the Labour Inspectors however, has not
  as yet been revised. The Labour Commissioner, Punjab in his letter dated
  February 25, 1991 addressed to the Secretary to Government, Punjab,
   Labour & Employment Department, Chandigarh has stated that there is
   great resentment in the Inspectorate staff and there is a hope that their
H pay-scales would be revised very soon esp~cially when the Third Pay
          TARSEMSINGHv. STATE OF PB. [KULDIPSINGH,;.J                 459

Commission had put the Assistants/St.enographers and Inspectors in one A
category. Since the post of AssistanUStenographer has always been con-
sidered to be a lower post than that of the Labour Inspector, we are not
inclined to interfere with the promotion of the appellants to the post of
Labour Inspector. We, however, request the State Government to recon-
sider the whole question of promotion of ministerial employees to the post B
of Labour Inspector afresh. It would be advisable to revise Rule 8(1)(a)(i)
by proper application of mind. In case the post of AssistanUStenographer
continues to be in the grade higher than that of Labour Inspector, it would
be open to the State Government to exclude the same as feeder category
for appointment as Labour Inspector by way of promotion under Rule
8(1)(a)(i) of the Rules.                                                    C
      We, therefore, allow the appeals, set aside the judgment of the
learned single Judge and of the Division Bench of the High Court and
dismiss the writ petitions filed by the respondents before the High Court.
No costs.

A.G.                                                    Appeals allowed.