2000 Supreme(MP) 462

2000 (2) JLJ 268
(FULL BENCH)
Dipak Misra, S.K. Kulshrestha and S.P. Khare, JJ.
Suresh Chandra Sharma v. State of M.P. and others
W.P. No. 4829 of 1997; against the order of State Administrative Tribunal,
Gwalior Bench; Decided on 10.5.2000.

Headnote:(1) Words and Phrases -- word ‘post‘ -- is a service or employment -- person holding a post under a State -- is a person serving or employed under the State. AIR 1967 SC 884 followed. [Para 9

       (2) Words and Phrases -- post under the State -- is an office or position to which duties in connection with the affairs of the State are attached.

       A post under the State is an office or a position to which duties in connection with the affairs of the State are attached, an office or a position to which a person is appointed and which may exist apart from and independently of the holder of the post and a post under the State means a post under the administrative control of the State which the State may create or abolish and may regulate the conditions of service of persons appointed to the post. AIR 1967 SC 884 followed. [Para 9

       (3) Constitution of India -- Art.311 (2) -- extra departmental agents -- are not casual workers -- they are holders of the post -- it was a post under the State -- services of such agents cannot be terminated in violation of provisions under. 1977 (2) SLR 226 followed. [Para 10

       (4) Master and Servant -- several factors may indicate relationship -- none may be conclusive -- factors to be considered are right to select -- right to appoint, etc.

       Several factors may indicate the relationship of master and servant and none may be conclusive. It was further observed that no single factor may be considered absolutely essential and the presence of all or some of the factors, such as, the right to select for appointment, the right to appoint, the right to terminate the employment, the right to take other disciplinary action, the right to prescribe the conditions of service, the nature of duties performed by the employee, the right to control the employee‘s manner and method of the work, the right to issue directions and the right to determine and the source from which wages or salary are paid and a host of such circumstances, may have to be considered to determine the existence of the relationship of master and servant and in each case, it would be a question of fact whether a person is a servant of the State or not. AIR 1984 SC 161 followed. [Para 11

       (5) Constitution of India -- Arts. 309 and 311 -- whether a person holds civil post under State and is an employee of the State -- test to be applied.

       1. Whether the Statutory Body in connection whereof he is appointed, is a body which performs the fanctions which are essentially the functions of the State such as the imposition of the tax or fee in the nature of taxes and the salary and the allowance of the servants and the officers are paid out of funds contributed or lent by the State Government or raised by discharge of such essential governmental function; and

       2. Whether the State Government has the right to select for appointment, the right to appoint, the right to terminate the employment, the right to take other disciplinary action and the right to prescribe the conditions of the service and the nature of the duties performed by such employee coupled with the right to issue direction and the right to determine and the source from which wages or salary shall be paid to such employee. AIR 1967 SC 884, 1977 (2) SLR 226 and AIR 1995 SC 1636 followed. [Para 13

       (6) Municipalities Act, 1961 (M.P.) -- Ss. 110, 105, 123 and 127 -- power to levy taxes -- collection thereof -- duties to be performed under the Act by the municipality -- makes it a State.

       The functions of the Municipalities, the power to levy taxes and collection thereof, the power to charge fees in the nature of taxes, the essential duties performed, all are in the nature of the essential functions of the State. AIR 1984 SC 161 and AIR 1995 SC 1636 followed. [Para 19

       (7) Municipalities Act, 1961 (M.P.) -- Ss. 86, 87 and 89 -- M.P. State Municipal Service (Executive) Rules, 1973 -- Rr. 2(b), 11, 5, 22, 48 and 49 -- Fundamental Rules -- Rs. 22-A and 22-B -- provisions under -- cumulative effect is that Chief Municipal Officer of a municipality -- is a servant of State Government.

       Section 87 provides that there shall be a Chief Municipal Officer to every Council who shall be the principal executive officer to the Council and all other officers and servants of the Council shall be subordinate to him and the Chief Municipal Officer shall be a member of the State Municipal Service (Executive) and shall be appointed by the State Government. [Para 20

       Under rule 2(b) of the M.P. State Municipal Service (Executive) Rules. 1973, the appointing authority is the State Government in relation to the member of the State Municipal Service (Executive). The method of recruitment as prescribed by rule 5 is by direct recruitment and by promotion. [para 21

       Not only that the appointments of the members of the State Municipal Service are to be made by State Government, rule 22 provides for maintenance of seniority of such members of the service at the State leve1. The determination of initial pay is required to be made in accordance with Fundamental Rules 22-A and 22-B applicable to the Servants of the State Government. [para 22

       As per rule 48, personal files of the members of the service are required to be maintained in the State Government Secretariat and the copies thereof in the Council concerned. Rule 49 makes the provisions of the Fundamental Rules applicable in respect of regulation of pay, joining time, leave, provident fund, loan, seniority and travelling allowance. [Para 23

       We therefore, have no difficulty in holding that the Chief Municipal Officer is ‘servant‘ of the State Government and answer the reference accordingly. [Para 24

       AIR 1967 SC 884, AIR 1984 SC 161 and AIR 1995 SC 1636 followed 1977 (1) SLR 746 overruled. 1991 JLJ 198, 1987 MPRCJ 143 and 1992 MPLJ 145 confirmed. [paras 2 to 24

       ¼1½ ‘‘kCn rFkk okD; && ‘‘kCn *in* && lsok vFkok fu;kstu gS && fdlh jkT; ds v/khu in /kkj.k djus okyk O;fDr && jkT; ds v/khu lsod vFkok fu;ksftr O;fDr gSA , vkb vkj 1967 ,l lh 884 vuqlfjrA ¿ iSjk 9À

       ¼2½ ‘‘kCn rFkk okD; && jkT; ds v/khu in && ,slk in vFkok vksgnk gS ftlls jkT; dk;Z ds laca/k esa drZO; layXu gSA

       jkT; ds v/khu dksbZ in] ,slk in vFkok vksgnk gS ftlls jkT; ds dk;Z ds laca/k esa drZO; layXu gSa] ;g ,slk in vFkok vksgnk gS ftl ij dksbZ O;fDr fu;qDr fd;k tkrk gS vkSj ftldk vfLrRo in ds /kkjd ls i`Fkd vkSj Lora= :i ls gks ldrk gS vkSj jkT; ds v/khu in dk vFkZ gS jkT; ds iz‘kklfud fu;a=.k ds v/khu in ftldk jkT; }kjk l`tu vFkok lekfIr dh tk ldrh gS vkSj in ij fu;qDr O;fDr;ksa dh lsok ‘krksaZ dk fofu;eu fd;k tk ldrk gS , vkb vkj 1967 ,l lh 884 vuqlfjrA ¿ iSjk 9À

       ¼3½ Hkkjr dk lafo/kku && vuq- 311¼2½ && foHkkxsrj vfHkdrkZ && uSfefÙkd deZdkj ugha gS && os in /kkj.k djrs gS && ;g jkT; ds v/khu in Fkk && ,sls vfHkdÙkkvksa dh lsok bl vuqPNsn ds mica/kksa ds mYy?kau esa] lekIr ugha dh tk ldrhA 1977 ¼2½ ,l ,y vkj 226 vuqlfjrA ¿ iSjk 10À

       ¼4½ ekfyd rFkk lsod && laca/k dk funsZ‘k fofHké dkjdksa }kjk gks ldrk gS && dksbZ Hkh fu‘pk;d ugha gks ldrk && fopkj ;ksX; dkjd gS p;u dk vf/kdkj && fu;qfDr dk vf/kdkj] vkfnA

       ekfyd rFkk lsod ds laca/k dk funsZ‘k fofHké dkjdksa }kjk gks ldrk gS vkSj dksbZ Hkh fu‘pk;d ugha gks ldrkA ;g Hkh leqfDr dh xbZ Fkh fd dksbZ ,dy dkjd vkR;afdr :i ls vko‘;d ugha ekuk tk ldrk vkSj ekfyd rFkk lsod dk laca/k vo/kkfjr djus ds fy, fu;qfDr ds fy, p;u dk vf/kdkj] fu;qDr djus dk vf/kdkj] fu;kstu lekIr djus dk vf/kdkj] vU; vuq‘kklfud dkjZokbZ djus dk vf/kdkj] lsok&‘krsZ vkSj deZpkfj;ksa }kjk ikyu fd, tkus okys drZO;ksa dk Lo:i fofgr djus dk vf/kdkj] deZpkjh ds dk;Z dh jhfr rFkk i)fr fu;af=r djus dk vf/kdkj] funs‘k tkjh djus dk vf/kdkj vkSj i;Zolku dk vf/kdkj] etnwjh vFkok osru vkSj og lzksr ftlls mudk lank; fd;k tk,xk] vkSj ,slh vusdkusd ifjfLFkfr;ksa tSls leLr vFkok muesa ls dqN dkjdksa dh fo|ekurk ij fopkj fd;k tkuk gksxk rFkk izR;sd ekeysa esa] ;g rF; dk iz‘u gksxk fd dksbZ O;fDr jkT; dk lsod gS ;k ughaA , vkb vkb 1984 ,l lh 161 vuqlfjrA ¿ iSjk 11À

       ¼5½ Hkkjr dk lafo/kku && vuq- 309 rFkk 311&& dksbZ O;fDr jkT; ds v/khu flfoy in /kkj.k djrk gS rFkk jkT; dk fu;ksftr gS && ykxw gksus okyh dlkSVhA

       1- D;k og dkuwuh fudk; ftlds laca/k esa og fu;qDr fd;k x;k gS] og ,slk fudk; gS tks ,sls —R; djrk gS tks lkjHkwr :i ls jkT; ds —R; gS tSls fd dj vFkok djksa ds Lo:i dh Qhl dk vf/kjksi.k rFkk lsodksa vkSj vf/kdkfj;ksa ds osru vkSj HkÙks] jkT; ljdkj }kjk vfHknÙk vFkok m/kkj nh xbZ ;k ,sls lkjHkwr ljdkjh —R;kaas ds fuoZgu }kjk tqVkbZ xbZ fuf/k esa lanÙk fd, tkrs gS( rFkk

       2- D;k fu;qfDr ds fy, p;u dk vf/kdkj] fu;kstu lekIr djus dk vf/kdkj] vU; vuq‘kklfud vkSj ml lzksr ls ftlls ,sls deZpkjh dks etnwjh vFkok osru lanÙk fd, tk,¡xs] ;qfXer ,sls deZpkjh ds fy, lsok dh ‘krsZ vkSj drZO;ksa ds Lo:i fofgr fd, tkus dk vf/kdkj jkT; ljdkj dks izkIr gSA , vkb vkj 1967 ,l lh 884] 1977 ¼2½ ,l ,y vkj 226 rFkk , vkb vkj 1995 ,l lh 1636 vuqlfjrA ¿ iSjk 13À

       ¼6½ uxjikfydk vf/kfu;e] 1961 ¼e-iz-½ && /kkjk 110] 105] 123 rFkk 127 && dj mnx`ghr djus dh ‘kfDr && mudk laxzg.k && vf/kfu;e ds v/khu uxjikfydk }kjk fuoZgu fd, tkus okys drZO; && buls og jkT; dks tkrh gSA

       uxjikfydkvksa ds —R;] djksa ds mn~xzg.k vkSj laxzg.k dh ‘kfDr] djksa ds Lo:i dh Qhl vf/kjksfir djus dh ‘kfDr] lkjHkwr drZO;ksa dk ikyu] lHkh jkT; ds lkjHkwr —R;ksa ds Lo:i gSaA , vkb vkj 1984 ,l lh 161 rFkk , vkb vkj 1995 ,l lh 1636 vuqlfjrA ¿ iSjk 19À

       ¼7½ uxjikfydk vf/kfu;e] 1961 ¼e-iz-½ && /kkjk 86] 87 rFkk 89 && e-iz- jkT; uxjikfydk lsok ¼dk;Zikyd½ && fu;e] 1973 && fu- 2 ¼[k½] 11] 5] 22] 48 rFkk 49 && ewy fu;e && fu- 22&d rFkk 22&[k && mica/k && lap;h izHkko ;g gS fd && uxjikfydk dk eq[; uxjikfydk vf/kdkjh && jkT; ljdkj dk lsod gSA

       /kkjk 87 esa micaf/kr gS fd izR;sd ifj"kn~ esa ,d eq[; uxjikfydk vf/kdkjh gksxk tks ifj"kn~ dk iz/kku dk;Zikyd vf/kdkjh gksxk vkSj ifj"kn~ ds vU; lHkh vf/kdkjh vkSj lsod mlds v/khuLFk gksaxs rFkk eq[; uxjikfydk vf/kdkjh] jkT; uxjikfydkvksa lsok ¼dk;Zikyd½ dk lnL; gksxk vkSj og jkT; ljdkj }kjk fu;qDr fd;k tk,xkA ¿ iSjk 20À

       e-iz- jkT; uxjikfydk lsok ¼dk;Zikyd½ fu;e] 1973 ds fu;e 2¼[k½ ds v/khu jkT; uxjikfydk lsok ¼dk;Zikyd½ ds lnL; ds laca/k esa fu;qfDr izkf/kdkjh jkT; ljdkj gS fu;e 5 }kjk ;Fkk fofgr HkrhZ dh jhfr lh/kh HkrhZ vFkok izkséfr }kjk gSA ¿ iSjk 21À

       jkT; uxjikfydk lsok dh HkrhZ gh dsoy jkT; ljdkj }kjk ugha dh tkrh] fu;e 22 }kjk ,sls lnL;ksa dh T;s"Brk jkT; Lrj ij la/kkfjr dh tkuk micaf/kr gSA izkjafHkd osru dk vo/kkj.k] jkT; ljdkj ds lsodksa dks ykxw ewy fu;e 22&d rFkk 22&[k ds vuqlkj fd;k tkuk visf{kr gSA ¿ iSjk 21À

       fu;e 48 ds vuqlkj] lsok ds lnL;ksa dh O;fDrxr Qkbysa jkT; ljdkj lfpoky; esa rFkk mudh izfrfyfi;k¡ lacaf/kr ifj"kn~ esa la/kkfjr dh tkuk visf{kr gSA fu;e 49 }kjk osru dks fofu;eu] dk;Zxzg.k dk vof/k] NqÍh] Hkfo"; fuf/k] _.k] T;s"Brk vkSj ;k=k HkÙks ds ckjs esa ewy fu;e ykxw gksuk micaf/kr fd;k x;k gSA ¿ iSjk 23À

       blfy,] gesa ;g vfHkfu/kkZfjr djus esa fd eq[; uxjikfydk vf/kdkjh jkT; ljdkj dk *lsod* gS vkSj rnuqlkj funsZ‘k dk mÙkj nsus esa dksbZ dfBukbZ ugha gSA ¿ iSjk 24À

       , vkb vkj 1967 ,l lh 884] , vkb vkj 1984 ,l lh 161 rFkk , vkb vkj 1995 ,l lh 1636 vuqlfjrA 1977 ¼1½ ,l ,y vkj 746 myVk x;kA 1991 ts ,y ts 198] 1987 ,e ih vkj lh ts 143 rFkk 1992 ,e ih ,y ts 145 iq"VA ¿ iSjk 2 ,oa 24À