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IN THE HIGH COURT OF MADHYA PRADESH
(FULL BENCH)
A. M. Khanwilkar, CJ, S. K. Gangele and Alok Aradhe, JJ.
Manoj Kumar Purohit and others v. State of M. P. and others
Writ Petition No. 13259 of 2011 (S) with Writ Petition No. 12604 of 2009, Writ Appeal No. 710 of 2010, Writ Petition No. 5887 of 2011, Writ Appeal No. 826 of 2011, Writ Petition No. 16608 of 2011, Writ Petition No. 2974 of 2012, Writ Appeal No. 280 of 2012, Writ Appeal No. 903 of 2014, Writ Appeal No. 202 of 2015, and Writ Appeal No. 233 of 2015 (Jabalpur); Decided on 23.11.2015
-- employee would be entitled to increment only after passing such test. [Paras 11 & 20
(2) Civil Service -- expression "conditions of service" -- means all those conditions which regulate holding of post right from time of appointment till retirement -- even beyond retirement in matters like pension. AIR 1976 SC 2049 and AIR 1979 SC 52 followed. [Para 11
(3) Civil Service -- new service condition -- may be brought into effect by executive instructions -- such condition would remain in force as long as it is not repealed either expressly or by necessary implication by another executive order or rule made under proviso to Art. 309 of Constitution or by statute -- specific stipulation of passing Hindi typing test -- can always be prescribed in absence of any specific bar in the rules. AIR 1987 SC 1293, (2008)4 SCC 370 and (2004)13 SCC 706 followed. 2011(3) MPWN 26 and 2013(1) MPHT 96 overruled. [Para 11
(4) Civil Service -- it is indeed prerogative of employer to prescribe qualification including higher qualification and lay down suitable service conditions in respect of post -- recruitment rules provide that preference would be given to persons possessing certificate of Hindi typing test -- open to State Government to prescribe qualification of passing Hindi typing test as essential and to make it mandatory -- for the same reason, State Government can prescribe such qualification in letter of appointment -- provision regarding preference gets exhausted at time of entering service. (1994)4 SCC 391, AIR 1956 SC 520, (1993)2 SCC 310 and (2007)11 SCC 599 followed. 2011(3) MPWN 26 and 2013(1) MPHT 96 overruled. [Para 11
(5) Civil Service -- recruitment rules silent or provide that preference will be given to candidate who passed Hindi typing test -- letter of appointment contains stipulation about passing such test -- passing such test after joining service becomes a condition of service, be it for regularisation or grant of increment -- employee would be entitled to increment only after passing test and not from initial date of appointment. 2011(3) MPWN 26 and 2013(1) MPHT 96 overruled. [Paras 11 & 20
(6) Civil Service -- employees appointed under scheme of compassionate appointment or regularization -- policies contained stipulation that they would be entitled to increment only after passing Hindi typing test -- joined services with that clear understanding -- acquiesced that condition and acted upon it -- even in absence of such stipulation in letter of appointment, they would become entitled to increment only after passing test. [Paras 12 & 20
(7) Civil Service -- employees appointed under scheme of compassionate appointment or regularization -- policies as well as letter of appointment contained stipulation that they would be entitled to increment only after passing Hindi typing test -- neither challenged condition incorporated in policy nor in letter of appointment -- on the contrary, acquiesced with the same and, in fact, acted upon it -- cannot be permitted to "blow hot and cold" or "approbate and reprobate" -- would be entitled to increment only after passing test. (2013)5 SCC 470 followed. Law of Estoppel and Res Judicata 4th edition by Chief Justice M. Monir and A. C. Moitra relied on. [Paras 13 & 20
(8) Words and Phrases -- expression "ordinarily" -- recognizes that there can be deviation which can be justified by reasons -- does not promote a cast iron rule - it is flexible and is never used in a case where there are no exceptions. (1997)1 SCC 607 and (2001)4 SCC 350 followed. [Para 17
(9) Civil Service -- Fundamental Rules -- R.24 -- increment can be withheld by imposing condition with regard to its entitlement, by executive order in absence of any express prohibition in rules. [Para 17
(10) Civil Service -- Fundamental Rules -- R. 9 (31) (a) r/w Rr. 9 (28) and 22 (b) -- appointment in time scale of pay -- does not entail automatic rise in pay necessarily adding periodical increment unless entitled to draw substantive pay -- non-compliance of condition of passing Hindi tying test -- makes appointment temporary and not substantive -- such temporary employee is not entitled to draw increment as per FR 22 (b). [Para 17
(11) Precedent -- no conflict in opinions expressed in Smt. Sushma Surana [2005(III) MPWN SN 116] and Vinod Mohan Shrivastava (ILR 2008 MP 1869) as they are in relation to facts of respective cases. 2011(3) MPWN 26 and 2013(1) MPHT 96 overruled. Writ Appeal No. 73 of 2011 decided on 7.8.2012 referred to. [Paras 18 & 20
¼1½ flfoy lsok && fganh Vkbfiax ijh{kk mÙkh.kZ djus dh 'krZ HkrhZ fu;eksa esa lqO;är% fofgr && izkjafHkd fu;qfä gh l'krZ gksxh && deZpkjh ,slh ijh{kk mÙkh.kZ djus ds i'pkr~ gh osru&o`f) dk gdnkj gksxkA ¼iSjk 11 ,oa 20 ¼2½ flfoy lsok && vfHkO;fä ßlsok dh 'krZÞ && og leLr 'krs± rkRif;Zr gSa tks fu;qfä ds le; ls gh lsokfuo`fÙk rd in /kkj.k fofu;fer djrh gSa && isU'ku tSls fo"k;ksa esa lsokfuo`fÙk ds ckn HkhA , vkb vkj 1976 ,l lh 2049 rFkk , vkb vkj 1979 ,l lh 52 vuqlfjrA ¼iSjk 11 ¼3½ flfoy lsok && lsok dh ubZ 'krZ && dk;Zikfyd vuqns'kksa }kjk izHkkoh dh tk ldrh gS && ,slh 'krZ rc rd izo`Ùk jgsxh tc rd og fdlh vU; dk;Zikfyd vkns'k ls ;k lafo/kku ls vuq- 309 ds ijarqd ds v/khu cuk, fu;e ls vFkok dkuwu ls lqO;är% vFkok vko';d foo{kk }kjk fujflr ugha dh tkrh && fganh Vkbfiax ijh{kk mÙkh.kZ djus dk fofufnZ"V vuqca/k && fu;eksa ls fofufnZ"V otZu ugha gks rks lnk gh fofgr fd;k tk ldrk gSA , vkb vkj 1987 ,l lh 1293] ¼2008½14 ,l lh lh 370 rFkk ¼2004½13 ,l lh lh 706 vuqlfjrA 2011¼3½ e-iz- ohDyh uksV~l 26 rFkk 2013¼1½ ,e ih ,p Vh 96 myVs x,A ¼iSjk 11 ¼4½ flfoy lsok && oLrqr% vgZrk] ftlesa mPprj vgZrk lfEefyr gS] fofgr djus vkSj in ds laca/k esa mi;qä lsok 'krs± vf/kdfFkr djus dk fo'ks"kkf/kdkj fu;kstd dk gS && HkrhZ fu;eksa esa micaf/kr fd fganh Vkbfiax ijh{kk izek.ki= okys O;fä;ksa dks vf/keku fn;k tk,xk -- jkT; ljdkj fganh Vkbfiax ijh{kk mÙkh.kZ djus dh vgZrk vfuok;Z fofgr dj ldrh gS rFkk mls vkKkid cuk ldrh gS -- blh dkj.k ls] jkT; ljdkj ,slh vgZrk fu;qfä&i= esa fofgr dj ldrh gS -- vfèkeku ls lacaf/kr mica/k lsok esa izfof"V ds le; fu%'ks"k gks tkrk gSA ¼1994½4 ,l lh lh 391] , vkb vkj 1956 ,l lh 520] ¼1993½2 ,l lh lh 310 rFkk ¼2007½11 ,l lh lh 599 vuqlfjrA 2011¼3½ e-iz- ohDyh uksV~l 26 rFkk 2013¼1½ ,e ih ,p Vh 96 myV x,A ¼iSjk 11 ¼5½ flfoy lsok && HkrhZ fu;e ekSu vFkok muesa micaf/kr fd ml vH;FkhZ dks vf/keku fn;k tk,xk ftlus fganh Vkbfiax ijh{kk mÙkh.kZ dh gS && fu;qfä&i= esa ,slh ijh{kk mÙkh.kZ djus dk vuqca/k varfoZ"V && lsok esa vkus ds i'pkr~ ,slh ijh{kk mÙkh.kZ djuk lsok dh 'krZ cu tkrk gS] pkgs og fu;fefrdj.k ds fy, gks vFkok osru&o`f) ds iznku ds fy, && deZpkjh ijh{kk mÙkh.kZ djus ds i'pkr~ gh osru&o`f) dk gdnkj gksxk] fu;qfä ds izkjafHkd fnukad ls ughaA 2011¼3½ e-iz- ohDyh uksV~l 26 rFkk 2013¼1½ ,e ih ,p Vh 96 myVs x,A ¼iSjk 11 ,oa 20 ¼6½ flfoy lsok && deZpkjh vuqdaik fu;qfä vFkok fu;fefrdj.k dh ;kstuk ds v/khu fu;qä && uhfr;kas esa vuqca/k varfoZ"V fd fgUnh Vkbfiax ijh{kk mÙkh.kZ djus ds i'pkr~ gh og osru&o`f) ds gdnkj gksaxs && bl Li"V cks/k ds lkFk lsok esa vk, && 'krZ ls mier gq, vkSj ml ij dkjZokbZ dh && fu;qfä&i= esa ,slk vuqcaèk ugha gksus ij Hkh] ijh{kk mÙkh.kZ djus ij gh osru&o`f) ds gdnkj gksaxsA ¼iSjk 12 ,oa 20 ¼7½ flfoy lsok && deZpkjh vuqdaik fu;qfä vFkok fu;fefrdj.k dh ;kstuk ds v/khu && fu;qfä uhfr;ksa ds lkFk gh && fu;qfä i= esa Hkh vuqca/k varfoZ"V fd fganh Vkbfiax ijh{kk mÙkh.kZ djus ds i'pkr~ gh og osru&o`f) ds gdnkj gksxs && u uhfr esa lfEefyr 'krZ vk{ksfir dh vkSj u fu;qfä&i= dh gh && rRizfrdwy] mlls mier gq, vkSj] okLro esa] ml ij dkjZokbZ dh && ßdHkh xeZ] dHkh ueZÞ gksus vFkok ßvuqeksnu vkSj vk{ksiÞ djus ugha fn;k tk ldrk && ijh{kk mÙkh.kZ djus ds i'pkr~ gh osru&o`f) ds gdnkj gksaxsA ¼2013½5 ,l lh lh 470 vuqlfjrA eq[; U;k;k/kh'k ,e- eksuhj rFkk ,-lh- eksb=k Ñr ykW vkWQ ,LVkWiy jsl T;wfMdkVk prqFkZ laLdj.k voyafcrA ¼iSjk 13 ,oa 20 ¼8½ 'kCn rFkk okD;ka'k && vfHkO;fDr ßlk/kkj.kr;kÞ && ekU; djrh gS fd fopyu gks ldrk gS ftls dkj.kksa }kjk U;k;ksfpr Bgjk;k tk ldrk gS && dM+s fu;e dks c<+kok ugha nsrh && yphyh gS vkSj ,slh fLFkfr esa dHkh iz;qDr ugha dh tkrh tgk¡ dksbZ viokn ugha gSA ¼1997½1 ,l lh lh 607 rFkk ¼2001½4 ,l lh lh 350 vuqlfjrA ¼iSjk 17 ¼9½ flfoy lsok && ewy fu;e && fu-24 && fu;eksa esa vfHkO;ä izfr"ks/k ugha gks rks osru&o`f)] mldh gdnkjh ds ckjs esa 'krZ vf/kjksfir dj] dk;Zikfyd vkns'k }kjk jksdh tk ldrh gSA ¼iSjk 17 ¼10½ flfoy lsok && ewy fu;e && fu-9 ¼31½ ¼d½ lgifBr fu- 9¼28½ rFkk 22¼[k½ && osru ds le;eku esa fu;qfä &furdkfyd osru&o`f) vko';dr% tksM+rs gq, osru esa Lor% o`f) vifjgk;Z ugha] tc rd fd ekSfyd :i ls osru ysus dk gdnkj ugha gks && fganh Vkbfiax ijh{kk mÙkh.kZ djus dh 'krZ dk vuuqikyu -- fu;qfä dks LFkk;h ugha] vLFkk;h cuk nsrk gS && ewy fu;e 22¼[k½ ds vuqlkj] ,slk vLFkk;h deZpkjh osru&o`f) ysus dk gdnkj ughaA ¼iSjk 17 ¼11½ iwoZ fu.kZ; -- Jherh lq"kek lqjkuk 2005¼3½ e-iz- ohDyh uksV~l 'kk- uks- 116] rFkk fouksn eksgu JhokLro ¼vkb ,y vkj 2008 ,e ih 1869½ esa vfHkO;ä vfHkerksa esa fojks/k ugha D;ksafd og vius&vius ekeyksa ds rF;ksa ls lacaf/kr gSaA 2011¼3½ e-iz- ohDyh uksV~l 26 rFkk 2013¼1½ ,e ih ,p Vh 96 myVs x,A fjV vihy Ø-73 2011 fu.khZr fnukad 7-8-2012 fufnZ"VA ¼iSjk 18 ,oa 20
Aradhe, J. -- 1. This reference arises from an order dated 27.08.2011 passed by the learned Single Judge in Writ Petition No. 13259/2011(S), to consider the following question :
“Whether an employee is entitled to increment from the initial date of appointment after his appointment in accordance to the Recruitment Rules and whether he can be denied increment on the ground of non passing of Hindi Typing Test due to the condition stipulated in the appointment order?”
2. Ordinarily, we must answer only the question as referred by the learned Single Judge, however, as other connected matters involving similar or overlapping issues have been directed to be linked with the leading writ petition in which reference order has been passed, we may have to examine the issues arising therein as well. After hearing the counsel appearing in the respective petitions, in this bunch of cases, we deem it appropriate to reformulate the questions which may have to be considered by us in all these matters as referred :
(A) Whether an employee is entitled to increment from the initial date of appointment or only from the date of passing of Hindi Typing Test, because of such condition specified in his letter of appointment? Further, is it open to the Appointing Authority to provide such a condition in the letter of appointment?
(a) When the Recruitment Rules expressly prescribe condition of passing Hindi Typing Test?
(b) When the Recruitment Rules are silent but the letter of appointment contains such stipulation about passing of Hindi Typing Test?
(c) When the Recruitment Rules provide that preference would be given to candidates who have passed Hindi Typing Test and the letter of appointment contains such stipulation?
(d) When the appointment is made under the Policy of Compassionate Appointment or Regularization specifying passing of Hindi Typing Test as essential and also the letter of appointment provides for that condition for entitlement of increment.
(B) When the appointment is made under the Policy of either Compassionate Appointment or Regularization and the Policy expressly provides that passing of Hindi Typing Test is essential, absence of such condition in the letter of appointment would make any difference.
(C) Whether decisions in the cases of State of M.P. v. Onkarlal, [2011(III) MPWN 26= 2011(3) MPLJ 404] and State of M.P. v. Ku.Ramani Bai Bhagat, [2013(1) MPHT 96], lay down correct proposition of law?
3. Facts giving rise to reference, in nut shell, are that the petitioners in Writ Petition No. 13259/2011 were appointed on compassionate basis on the posts of Lower Division Clerks (LDCs) in School Education Department of Government of Madhya Pradesh between the period from 27.3.1991 to 30.9.1997. Admittedly, the orders of appointment of petitioners contain a stipulation that within the period prescribed in the order of appointment it is mandatory for the petitioners to pass Hindi Typing Test. It is also not in dispute that petitioners have passed Hindi Typing Test beyond the period prescribed in the letters of appointment. The petitioners in the instant writ petition have sought a direction to the respondents to grant benefit of increment on completion of one year from the dates of their initial appointment along with interest.
4. We may now briefly refer to the facts of other connected matters. The appellants in Writ Appeals No. 280/2012, 354/2013, 166/2014, 903/2014 and 295/2014 and petitioners in Writ Petition No. 2974/2012 were appointed under the scheme of appointment on compassionate basis, whereas the employees in the remaining cases, namely, Writ Petitions No. 826/2011, 5887/2011, 13259/2011 and 12604/2009, 16608/2011 and Writ Appeals No. 1007/2013, 1012/2013, 233/2015, 710/2010, 444/2012 753/2010 and 1008/2013 were initially appointed and thereafter under the scheme of regularisation their services were regularized. The respondent in Writ Apepal No. 902/2014 was appointed in accordance with Recruitment
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