Supreme Court of India
BAQAR HUSSAIN AND ORS. ETC. ETC.versusZILLA PARISHAD, MEDAK ETC. ETC.
- Citation
- 1992 INSC 133
- Decided
- 28 April 1992
- Disposal
- Disposed off
- Bench
- L M SHARMA
Holding
The second proviso to Rule 4 protects only Upper Division Clerks who had passed the Account Test before 7 August 1967 and had already been regularised and promoted to higher posts by 22 August 1977; it does not grant seniority to others merely on the basis of earlier test qualification.
Summary
The case concerned the interpretation of the second proviso to Rule 4 of the Andhra Pradesh Panchayat Samithis and Zilla Parishads Ministerial Service Rules, 1965, which dealt with the regularisation and seniority of Upper Division Clerks who had been temporarily promoted before 15 March 1965. The appellants, promoted as Upper Division Clerks before 1965, passed the mandatory Account Test after 7 August 1967 but within the extended deadline of November 1974, and were later promoted to Superintendents and Managers. The respondents, also promoted before 1965, had passed the Account Test before 7 August 1967 and claimed seniority and promotion over the appellants. The Administrative Tribunal held that anyone who passed the test before 7 August 1967, regardless of promotion status, should be treated as senior. The Supreme Court examined the Government Orders and held that the second proviso protects only those who had both passed the test before 7 August 1967 and had been regularised and promoted to higher posts by 22 August 1977; it does not confer seniority on others merely because they passed the test earlier. Consequently, the seniority list was to be revised in favour of the appellants.
Issues considered
- The proper construction of the second proviso to Rule 4 of the 1965 Service Rules regarding seniority and promotion of Upper Division Clerks.
- Whether passing the Account Test before 7 August 1967 automatically confers seniority over those who passed it later but within the granted time.
- Whether temporary promotions prior to the issuance of the Rules affect regularisation and seniority.
Legislation cited
Subjects
senioritypromotionAccount Testtemporary promotionregularisationservice rules interpretationadministrative tribunallocal bodies
Judgment
A BAQAR HUSSAIN AND ORS. ETC. ETC.
v.
ZILLA PARISHAD, MEDAK ETC. ETC.
APRIL 28, 1992
B
[LAUT MOHAN SHARMA AND M. FATHIMA BEEVI, JJ.]
A.P. Panchayat Samithis and Zilla Parishads Act, 1959: Section 69.
A.P. Panchayat Samithis and Zilla Parishads Ministerial Service Rules,
c 1965-Rule 4-Provis~nterpretation of-Zilla Parishads and Panchayat
Samithis-Employees-Seniority and promotion-Passing of Accounts Test
made compulsory for promotion-Time granted and extended for passing the
-
- ('
Test-Employees temporarily promoted prior to issue of Rules and passing
the Test within extended period- Employees promoted prior to issue of Rules ---..(
D but passing the Test before extended period-Seniority between-How reek-
oned.
The Andhra Pradesh Panchayat Samithis and Zilla Parishads Min-
isterial Service Rules, 1965 were issued on 15.3.1965. Rule 4 of the said
rules prescribes the qualifications for appointment to the various
E categories of employees of Panchayat Samithis and Zilla Parishads. Under
this rule passing of Account Test was made a prerequisite qualification
from 15.3.1965 for the typists, lower division clerks etc. working in the -~
Telangana area for promotion to the post of Upper Division Clerks,
Superintendents and Managers. Since many employees had not acquired
F the test qualification and were liable to be reverted, the Government by its
order N~. G.O.Ms.No. 487 granted two years time from 7.8.1967 to 7.8.1969
to enable them to pass the Account Test. The time allowed for two years
was extended from time to time and finally up to November 1974. By a
-
notification No. G.O.Ms. No.822 P.R. dated 22.8.1977, Rule 4 was amende~.
The first proviso to the amended rule provided that services in the catego'/y ---,-
G of Upper Division Clerks and such of the Lower Division Clerks who were
temporarily promoted as Upper Division Clerks and Senior Accountants
prior to 15.3.1965 but passed the Account Test before 30th November, 1974
shall be ~larised -from the date of their first temporary promotion or
from a subsequent date~ Under second proviso such regularisation was not
H to affect the seniority and promotions to higher posts ordered in accord·
862
~
BAQAR HUSSAIN v. ZILLA PARIS HAD 863
ance with rules in favour of those who passed the Account Test before A
~- 7.8.1967.
The appellants, initially appointed as Lower Division Clerks in Zilla
Parishads, were promoted as Upper Division Clerks during 1960 to 1963.
They passed the Account Test after 7.8.1967 but before November, 1974.
The respondents were promoted as Upper Division Clerks before 1965 but B
they passed the Test before '7.8.1967. In the seniority list the appellants
were placed above the respondents and in due course were promoted as
Superiptendents and Managers. The respondents claimed seniority.and
promotions over the appellants on the ground that they have passed the
Account Test before 7.8.1967 while the appellants have passed the Test C
after 7.8.1967 and therefore they were entitled for promotion to the higher
posts before the appellants.
The Administrative Tribunal allowed the respondents' claim by hold·
ing that persons who were not qualified up to 7.8.1967 and who got the
benefit of the notification dated 22.8.1977 have to be treated as juniors to D
those having passed the Account Test before 7.8.1967 were fully qualified
for regular appointment as Upper Division Clerks irrespective of whether
such persons were appointed to the posts of Upper Division Clerks
regularly by 22.8.1977 or not.
E
In appeals to this Court it was contended on behalf of the appellants
that the interpretation placed on the 2nd proviso to ~ule 4 by the Tribunal
is wrong; (2) since time was granted for passing the prescribed test the
appellants who were promoted before passing the Account Test must be
.... deemed to have been qualified even at the time of the first appointment on
their passing the Account Test; (3) that the respondents were also F
promoted as Upper Division Clerks before they passed the test and their
passing the test before the extended time did not confer on them any right
of seniority when they were juniors to the appellants in the category of
Lower Division Clerks.
G
Disposing the appeals, this Court,
HELD : l, The intention of the Government in issuing the second
proviso in G.O.Ms.No.822 P.R. dated 22.8.1977 is to protect only those who
passed the Account Test before 7.8.1967 and whose services in the category
of Upper Division Clerks were regularised and promoted to the higher H
864 SUPREME COURT REPORTS [199'2] 2 S.C.R.
A posts by 22.8.1977. It is not intended to benefit those persons who are not
regularised or promoted even though they had passed the Account Test
before 7.8.1967. The crucial words in the second proviso 'the seniority and
promotions to higher posts ordered in accordance with rules in favour of
those who passed the Account Test before 7.8.1967' contemplated an order
of promotion taking into account the test qualification acquired before
B 7.8.1967. If there had not been an order of promotion, the mere passing of
the test before 7.8.1967 does not confer seniority to those Upper Division
Clerks over. the category which had been granted the concession.
(876 D-E, 873 F-G]
2. On a' plain reading of the proviso in the light of the various
c Government Orders, it is very clear that until the Upper Division Clerks
promoted before 15.3.1965 were regularised and promoted to the higher
post on their acquiring the test qualification before 7.8.1967, they do not
get seniority over those who.passed the test after 7.8.1967 but within the
time granted and the latter do not lose their seniority in favour of their
D juniors who acquired the test qualification before 7.8.1967. (876 F-G]
3. Those temporary Upper Division Clerks who were liable to be
reverted for want of test qualification and who bad been conferred the
concession by extending the time for passing the test were entitled to be
E regularised on passing the Account Test from the date of their first
temporary appointment or the subsequent date without affecting the
seniority of those persons who had secured promotion to higher post in -~
accor~ance with the rules on having passed the Account Test before
. 7.8.1967. Thus the proviso clearly indicates that as a matter of right the
temporary Upper Division Clerks wbU were liable to be reverted but had
F been given the concession and· had passed the Account Test within the
time granted could maintain their seniority over those persons who had
not been promoted by virtue of their test qualification. The letter category
who had already been promoted had to be treated as senior to the former. _.--J -_
Any other interpretation of these provisos would make the second proviso r '-
redundant. (873 ff, 874 A-CJ
G
4. The passing of the Account Test does not automatically result in
regularisation of the appointment as Upper Division Clerks. The persons
who were temporarily promoted earlier bad been granted concession to get
qualified and when they acquired such qualification they stood in the .same ~
H position as those who passed the test earlier. The regularisation is not with
BAQAR HUSSAIN v. ZILLA PARISHAD [FATIIIMA BEEVI, J.] 865
reference to the date of passing the test but with effect from the date of A
first promotion in such cases. (877 B-C]
5. The protection under the ·latter part of the proviso to Rule 4 is
available to those Upper Division Clerks who happened to be juniors and
who had also acquired the test qualification and bad been promoted to
the higher posts on a regular basis though their senior acquired the test B
qualification within the time allowed by the Government. However, such
protection is not available to those employees who remained in the same
category of Upper Division Clerks and had been temporarily promoted as
--- )
Upper Division Clerks subsequent to the appellants though they bad
passed the test before 7.8.1967. (877 F-G]
Chandrakant v. State of Gujarat, [1977) 2 S.L.R. 605, referred to.
c
~-·
6. The Tribunal overlooked the true scope of the proviso in the light
of the Government order dated 7.8.1967 and uniformly applied the protec-
tion aQ'orded in the second proviso to all those persons who had acquired
the test qualification before 7.8.1967 irrespective of the fact that they had D
been regularised and promoted to higher posts before 1977. The seniority
list shall be prepared in all the cases in the light of the above findings and
the consequential relief be granted to the appellants. (876 F, 878-A]
CIVIL APPELLATE JURISDICTION: Civil Appeal Nos. 4085 & E
4086 of 1984.
From the Judgment and Order dated 10.7.1984 of the Andhra
- Pradesh Administrative Tribunal, Hyderabad in R.P. No. 51/77 and R.P.
No.451 of 1981.
WITH
F
C.A. Nos. 1303/88, 3347 & 3350/83, 3192/85 ~ND 1808/92.
K. Madhava Reddy, G. Prabhakar, Ms. Malini Poduval, B. Kanta Rao,
C.S. Panda, A. Subba Rao and R.N. Keshwani for the appearing parties.
G
The Judgment of the Court was delivered by
FATHIMA BEEVI, J. Special Leave granted.
These appeals raise identical question involving the interpretation of
the Andhra Pradesh Panchayat Samithis And Zilla Parishads Ministerial H
866 SUPREME COURT REPORTS (1992) 2 S.C.R.
A Service Rules 1965 in relation to seniority and promotion. The Rules under >-
the Andhra Pradesh Panchayat Samithis And Zilla Parishads Act 1959
were issued under G.O.Ms.No. 303 P.R. dated 15.3.1965. The service
consists of categories of posts as under: -
Category I : Managers etc. Zilla Parishads.
B
Category II : Superintendents in Zilla Parishads and Panchayat
Samitbis.
Category Ill : Secretarial Assistants, Revenue Officers, Endowment
Officers, Upper Division Oerks and Senior Accountants
...--
c in Zilla Parishads and Panchayat Samithis. t
Category IV : Loan Inspectors, Lower Division Clerks and Junior -1
Accountants-cum-Store Keepers etc.
Rule 3 so far as material reads thus: -
D
"3. Appointment: - Appointment for the categories specified in
column (1) below shall be made by the method specified in the correspond-
ing entry in column (2) thereof.
Category Method of Appointment
E
1 2
I. (i) & (ii) Managers in Zilla By promotion from Category II
Parishads and Panchayat Note: (i) Assistants working in
Samithis Andhra Pradesh Secretariat --
F shall also be eligible to hold the
posts on deputation for a
specified period to be
prescribed by the Government. - r-(_J
II. Superintendents, Zilla Parishads By promotion from classes (i) to
and Panchayat S.amithis (iv) in Category Ill.
G
Ill. Classes (i) to (iv) By promotion from classes (i) to
(iv) in Category V."
Rule 4 prescribes the qualifications for appointment to the various ~
categories. Under this rule, Account Test for the employees of local bodies
H or an equivalent tesl in addition to the general educational qualification
BAQAR HUSSAIN v. ZILLA PARISHAD [FATHIMA BEEVI, J.] 867
specified is prescribed against categories 1, 2 and 3. As the Account Test A
became a new test from 15.3.1965 to the employees of Panchayat Samithis
and Zilla Parishads working in Telangana area, the Government granted
two years time from 7.8.1967 to 7.8.1969 to enable them to pass the
Account Test. The period was extended by two more years in 1969 and for
a further period of two years in 1971. Finally, the rule itself was amended B
--·( extending the time up to November 1974.
Proviso to Rule 4 as amended reads thus: -
"Provided further that the services in the category of Upper
Division Clerks of such or the Lower Division Clerks working C
in Panchayat Samithis and Zilla Parishads who were temporari-
ly promoted as Upper Division Clerks and Senior Accountants
prior to 15th March, 1965, but passed the prescribed Account
Test before 30th November, 1974 i.e. \.iithin the time granted
to them by executive orders issued from time. to time by the
Government to pass the said Account Test shall be regularised D
from the date of their first temporary promotion or from a
subsequent date:
Provided also that the regularisation of service under the
foregoing proviso shall not affect the seniority and promotions E
to higher posts ordered in accordance with rules in favour of
those who passed the said Account Test before the 7th August,
1967."
-- Appellants in Civil Appeals Nos. 4085 & 4086 of 1984 were ap-
pointed as Lower Division Clerks in Zilla Parishad, Medak during the F
period of 1959 to 1961. They were promoted to the regular vacancies of
Upper Division Clerks during the period of 1960 to 1963. The respondents
were also appointed as Upper Division Clerks before 1965.
•
The appellants who were promoted as Upper Division Clerks before G
153.1965 passed the Account Test within the extended period after
7.8.1967. The respondents, however, acquired the qualification by passing
the test before 7.8.1967. The appellants were in due t:ourse promoted as
Superintendent and Manager.
Seniority list of Upper Division Clerks was prepared by proceedings H
868 SUPREME COURT REPORTS [1992) 2 S.C.R.
A dated 5.6.1975. In the seniority list, the appellants were placed above the >--
respondents. In February 1976, the appellant No. 1 was promoted as
Superintendent along with two other and subsequently they were further ;...
promoted as Managers. On 1.7.1976, appellant No. 2 and appellant No. 3
were promoted as Superintendents: Proceedings of promotion given to the
appellants were challenged by the respondents before the Administrative
B Tribunal by filing R.P. No. 51 of 1977 on the ground that they have passed ').-- ),.
the Account Test in 1966-1967 while the appellants have passed the said
test only after 1967 and, therefore, the respondents were entitled for
c
promotion to the higher posts before the appellants. Similar petitions were
filed by other parties. The appellants also filed a petition as R.P. No. 451
of 1981 seeking a relief that the settled final seniority list of Upper Division
Clerks should not be disturbed and promotions given on that basis should
---
i:'
not be disturbed. The Tribunal by a common judgment dated 10.7.1984 -1
disposed of these petitions.
The respondents' petition was allowed by the Tribunal holding that
D persons who were not qualified up to 7.8.1967 and who got the benefit of
the amendment issued under G.O. Ms. No. 822 dated 22.8.1977 have to be
treated as juniors to those having passed the Account Test before 7.8.1967
were fully qualified for regular appointment as Upper Di'vision Clerks
irrespective of whether such persons were appointed to the posts of Upper
E Division Clerks regularly by 22.8.1977 or not.
The Tribunal adopted the reasoning that a person who has passed
F
the Account Test is entitled to be appointed regularly to the post of Upper
Division Clerk and person who has not passed such Account Test cannot
be held to be entitled to such regular appointment until either they passed
the Account Test or are exempted from passing such test. The Tribunal
-
held that because of the test qualification such persons were eligible for
regular appointment and those who have not acquired the qualification are ~~
to be treated as unqualified persons until 7.8.1967 the date on which the
relevant orders giving them the necessary concessions were issued. In this
G view, relief was granted in all the petitioners before it by the Tribunal.
Aggrieved by the decision of the Tribuanl, the appeals have been preferred
on special leave granted by this Court.
-
~.
Learned counsel for the appellants bas taken us through the Govern-
H ment Orders, the relevant rules and the other material papers and the
BAQAR HUSSAIN v. ZILLA PARISHAD [FA1HJMA BEEVI, J.) 869
I
judgment of the Tribunal. He contended that the interpretation placed on A
the 2nd proviso to Rule 4 by the Tribunal in the light of the other
Government Orders is wrong, that on prescribing the test qualification for
promotion to the cadre of µ pper Division Clerks since time has been
granted for acquiring- the qualification, the appellants who have been
promoted before passing the Account Test must be deemed to have been B
, qualified even at the time of the first appointment on their passing the
Account Test. It was submitted that the respondents have also been
promoted as Upper Division ClerkS before they acquired the test qualifica-
tion and merely because they have passed the test before the time was
extended by the Government, it ,did not confer any right of seniority when
they were juniors to th.e appellants in the category of Lower Division C
r I Clerks. It is also pointed out that the seniority list fmalised in 1975 was not
objected to and the promotion made on the basis of that list could not be
assailed. Counsel for the respondents, on the other hand, maintained that
until the appellants passed the Account Test, they were not qualified for
being promoted as Upper Division Clerks. Their Temporary promotion did D
not confer any right on them and their regular appointment can be deemed
to have been made only when they passed the Account Test and that being
subsequent to the date on which the respondents· qualified themselves, they
lost their seniority and, therefore, the Tribunal was right in its conclusions.
In order to appreciate these arguments, it is necessary to refer to the E
relevant Government Orders. The proviso to Rule 4 deals with the service
in the Category of Upper Division Clerks and such of the Lower Division
Clerks who were temporarily promoted as Upper Division Clerks prior to
- 15.3.1965 but passed the Account Test before 30th November 1974 and
they are to be regularised from the date of their first temporary promotion F
or from the subsequent date. Such regularisation shall not affect the
seniority and promotions to higher posts ordered in accordance with the
rules in favour of those who passed the said Account Test before 7th
August, 1967.
The Andhra Pradesh Panchayat Samithis and Zilla Parishads Act G
1959 came into force on 18.9.1959. Under Rule 4, the District Cadre Staff
includes both governments and non-governments servants. Qualification
prescribed by the Government for similar posts were followed as per G.O.
Ms. No. 2107 dated 2.8.1961 in Telangana. Appointments made after
1.12.1959 by the District Selection Committee was to be treated as regular H
870 SUPREME COURT REPORTS [1992) 2 S.C.R.
A service and their services will be ·regularised after issue of rules and
promotions may be made on emergency basis pending issue of rules on the
basis of date of first appointment. The Andhra Pradesh Panchayat Samithis
and Zilla Parishads Ministerial Service Rules were issued by the Governor
of Andhra Pradesh in exercise of the powers conferred under Section 69
of the Act on 15.3.1965. The qualifications are prescribed in Rule 4. The
B Account T;!st became obligatory from 15.3.1965 to the employees of
Panchayat Samithis and Zilla Parishads working in Telangana area also.
The appellants in Civil Appeals No. 4085 ~ 4086 of 1984 were
C
appointed in the Panchayat Samithis and Zilla Parishads, Medak, as Lower
Division Clerks during the period of 1958 to 1961 on selection made by
District Selection Committee. These appellants 1 to 9 Baqar Hussain,
Ameeruddin, S. Vittal, Ghousuddin, C.H. Jagannatbam, G. Tulasidas, Y.
-
Vittal Das, Mallaiah Gupta·and J. Janardhan Reddy were promoted to the
regular vacancies of Upper Division Clerks during the period of 1960 to
1963. The rules which came into force on 15.3.1965 prescribed Account
D Test for regularisation of the employees in the cadre post. These appellants
passed the Account Test after 7.8.1967 but before November 1974.
The respondents Venkatesam and Ballaiah were promoted as Upper
Division Clerks on 16.11.1964 and 21.10.1963 respectively. Venkatesam
-
E passed the Account Test in 1966 and Ballaiah passed the Account Test in
1967.
Baqar Hussain was promoted as Superintendent along with Zakir
F
Hussain and Srinivas Rao On 7.2.1976. They were further promoted as
Managers on 1.7.1967. Ameeruddin was also promoted as Manager. These
promotions were questioned by the respondents claiming seniority over
these persons on the ground that they have passed the Account Test in
-
{966 and 1967.
In Civil Appeals Nos. 3347 & 3350 of 1983, respondents challenged ~.
'
G the se13iority list dated 28.1.1976.
Civil Appeal No. B003 of 1988 arises from RP.No. 242 of 1978. The
appellants were appointed as Lower Division Clerks during the period of
1957 to 1959 and promoted as Upper Division Clerks between 1961 to 1964
before the rules came into force. The respondents were promoted as
H Upper Division Clerks subsequent to the promotion of the appellants and
BAQAR HUSSAIN v. ZILLA PARISHAD [FATHIMA BEEVI, J.] 871
,~ after the rules came into force. The respondents had passed the Account A
Test prior to 7.8.1967. The appellants were further promoted as Superin-
tendents and Managers during the period 1978 to 1982.
By the G.O. Ms. No. 2107 dated 2.8.1961, the Government directed
that pending issue of rules prescribing qualifications to each post under
the Andhra Pradesh Panchayat Samithis Act 1959, the rules obtaining in B
~
the different District Boards should be followed. It was also ordered that
wherever such District Board Rules are not available in respect of any post
included in the District Cadfe i.e. Panchayat Samithis and Zilla Parishads,
---> the qualifications prescribed for similar post should be followed. In Andhra
area, under the Andhra Pistrict Board Rules, the Account Test for the
local bodies employees was prescribed for promotion of Lower Division
c
Clerks as Upper Division Clerks. In Telangana area, no such Account Test
y was prescribed as a prerequ~ite qualification for promotion of Lower
Division Clerks as Upper Division Clerks. No specific instructions were
issued by the Government that the Lower Division Clerks or the Junior
Accountants in the lower category should pass the Account Test for
D
holding the post of Upper Division Clerks in Panchayat Samithis and Zilla
~
Parishads in the Telangana area.
With effect from 15.3.1965, passing of Account Test for the
employees of local bodies or an equivalent test in addition to general E
r qualification was prescribed in the Andhra Pradesh Panchayat Samithis
and Zilla Parishads Ministerial Services Rules as a prerequisite qualifica-
tion for the Typists, Lower Division Clerks etc. for promotion to the post
- of Upper Division Clerks, Superintendents, Managers Panchayat Samithis
and Zilla Parishads. The test thus became obligatory in Telangana area
with effect from 15.3.1965.
F
Prior to the issue of the rules certain employees including the appel-
"'I -
lants were promoted as Upper Division Clerks on temporary basis in
accordance with the orders and general rules issued. Most of them had not
acquired the Account Test qualification and, therefore, they are liable to G
be reverted. The Government examined the question and by G.O.Ms. No.
487 dated 7.8.1967 directed the two years time from the date of the issue
of the orders shall be allowed to those employees who were promoted as
;.-, Upper Division Clerks prior to the issue of the rules to pass the Account
Test prescribed under the rules. It was further provided that the services H
872 SUPREME COURT REPORTS [1992) 2 S.C.R.
A of the employees referred to shall be regularised with reference to the date
of their appointment as Upper Division Clerks provided they passed the ~
Account Test within the time of two years allowed, and others who do not
acquire the above qualifications within the time allowed shall be reverted.
This concession was not applicable to the employees w~o were promoted
after 15.3.1965. It was further directed that the employees who acquired
B the age of 45 years on or before 15.3.1965 shall be exempted from pas5ing
the Account Test, and when so exempted they shall be eligible for promo-
)-
tion along with others who acquire such ql,lalifications. The tiine allowed
--
for two year~ was extended from time to time and finally up to November
1974. A Notification was issued on 22.8.1977 and the proviso was inserted
c which reads thus: -
-(
"Provided further that the Services in the category of Upper
Division ClerkS of such of the Lower Division Clerks working -{
in Panchayat Saniithis and Zilla Parishads in the Districts of
Hyderabad, Adilabad, Medak, Warangal, Nizamabad, Kham-
D mam, Nalgonda, Karimnagar, who were temporarily promoted
as Upper Division Clerks and Senior Accountants prior to 15th
March, 1965, but passed the prescribed Account Test before
30th November, 1974, i.e. within the time granted to them by
executive orders issued from time to time by the Government
E to pass the said Account Test shall be regularised from the date
of their first temporary promotion or from a subsequent date."
~
"Provided also that me regularisation of services under the
F
foregoing proviso shall not effect the seniority list and promo-
tions to higher posts ordered in accordance with rules in favour
of those who passed the said Account Test before 7th August,
1967."
--
The latter proviso is clear that the regularisation of services of the - -.-r-
-
employees who were temporarily promoted as Upper Division Cl!!rks prior
G to 15.3.1965 but passed the prescribed Account Test Within the time
granted wai. lo be from the date of their first temporary promotion or from
the subse~~ent date and subject to seniority of those employees who had
been promoted to higher posts in accordance with the rules· on their having
passed the Account Test before 7.8.1967. The concession in G.O.Ms. No. ~
H 48'7 dated 7.8.1967 was conferred on those Upper Division Clerks who were
BAQAR HUSSAIN v. ZILLA PARTSHAD [FATIIIMA BEEVI, J.] 873
holding the post temporarily and were liable to be reverted for want of the A
test qualification only subject to the second proviso. The latter proviso
refers to the employees who had passed the Account Test before 7.8.1967
and by virtue of such qualification they had been promoted to higher posts
in accordance with the rules. That definitely refers to those Upper Division
Clerks who had been appointed as Upper Division Clerks on a regular B
basis and such of them who had been promoted to the higher post after
-( having acquired the necessary test qualification. Their seniority over those
employees who had not passed the Account Test before 7.8.1967 is secured
by this proviso. It is only when the promotion to higher posts had been
ordered in accordance with the rules in their favour after having acqwred C
the test qualification, before 7.8.1967 the proviso becomes applicable. Even
if the Upper Division Clerks had acquired the test qualification before
7.8.1967 but had not been promoted to the higher posts and before they
were promoted the other persons who had· been temporarily appointed as
Upper Division Clerks had also acquired the test qualification within the
time granted, their regularisation ·from the date of the first temporary D
promotion entitles them t<? retain the original seniority. They lose the
seniority only in favour of Upper Division Clerks who passed the Account
Test before 7.8.1967 and had been promoted to higher posts in accordapce
with the rules, even though they might have been junior to the category
who passed the Account Test after 7.8.1967 but within the time granted. E
This is the effect of the proviso. It benefits only the Upper Division Clerks
who had been promoted to higher posts by virtue of their test qualification.
So long as such promotions had not been ordered, they remained in the
same category as those who had been granted the concession up to
- November 1974. The inter se seniority between these two categories is not F
af{ected until their promotion. The crucial words in the second proviso 'the
seniority and l?romotions to higher posts ordered inaccordance with rules
in favour of those who passed the Account Test before 7.8.1967' con-
templated an order of promotion taking into account the test qualification
acquired before 7.8.1967. If there had· not been an order of promotion, the G
- mere passing of the test before 7.8.1967 does not confer seniority to those
Upper Division Clerks over the category which had been granted the
concession. Those temporary Upper Division Clerks who were liable ~o be
reverted for want of test qualification and who had been conferred the
concession by extending the time for passing the test were entitled to be
H
874 SUPREME COURT REPORTS (1992) 2 S.C.R.
A regularised on passing the Account Test from the date of their first
.temporary appointment or the subsequent date without affecting the >--
seniority of those persons who had secured the promotion to higher post
in accordance with the rules on having passed the Account Test before
7.8.1967. The proviso clearly indicates that as a matter of right the tern-
B porary Upper Division Clerks who were liable to be reverted but had been
given the concession and had passed the Account Test within the time
granted could maintain their seniority over those persons who had not been
promoted by virtue of their test qualification. The latter category who had
already been promoted had to be treated as senior to the former. Any other
c interpretation of these provisos would make the second proviso redundant. _......
Those who acquired the test qualification before 1967 and had been
promoted to higher post by virtue of such qualification are entitled to t;
seniority over those who acquired the test qualification after 1967 and were
regularised in the cadre of Upper Division Clerks even if their first ap- -{
pointment as Upper Division . Clerks was prior to that of the earlier
D category. This does not mean that those of the Upper Division Clerks who
acquired the test qualifacation before 1967 but remained as Upper Division
Clerks even when the seniors acquired the test qualification would be
entitled to seniority in the category of Upper Division Clerks so long as
they have not been promoted 'to the higher post in accordance with the
E rules on regularisation.
Sri S.K. Yousufuddin and seven other employees of Zilla Parishads, ---,
Karimnager, claimed seniority over some of the juniors who acquired the
Account Test qualification earlier to the seniors promoted to the post of
F
Upper Division Clerks before 1965 and who had passed the Account Test
within the extended time granted by the Government. Similarly, M.A. ---
Saleem, and six other employees of Karimnagar Zilla Parishad claimed
seniority over the juniors who had passed the test before 7.8.1967.
r-
The Government by the order dated 23.1.~978 after examining the
G quest_ion stated thus: -
"According to the amendment issued in G.O.Ms. No. 822 P.R.
dated 22.8.1977, the service of the Lower Division Clerks in
-
Telangana region who were temporarily promoted as Upper ·~
H Division Clerks and Senior Accountants prior to 15.3.1965 but
BAQAR HUSSAIN v. ZILLA PARISHAD [FATH.IMA BEEVI, J.] 875
passed the prescribed Account Test before 30.11.1974 i.e. A
within the time granted by the Government shall be regularised
from the· date of their first temporary promotion or from a
subsequent date provided that the regularisation of services
shall not affect the seniority and promotion to the higher post
ordered in accordance with the rules in favour of those who B
passed the said Account Test before 7.8.1967. It means that the
Lower Division Clerks who were promoted as Upper Division
Clerks temporarily prior to the issue of the rules on 15.3.1965
but passed the Account Test subsequently before 30.11.1974
are entitled to have their services regularised retrospectively.
But however such of those employees who were promoted C
temporarily as Upper Division Clerks prior to 15.3.1965 but
passed the Account Test before 7.8.1967 and who have also
been promoted to the higher posts in accordance with the rules
shall not be effeCted."
D
In this view, the Government directed that the services of Sri
Yousufuddin, Manager, who was promoted as Upper Division Clerk tem-
porarily from 3.5.1961 and p<tSsed the Account Test in May.1967 and who
was also promoted as Manager be regularised with effect from 3.5.1961 in
the category of Upper Division Clerks and also in the category of Managers
with effect from the date of his promotion as he was fully qualified to the E
post on that date as per the amendment issued in G.O.Ms. No. 822 P.R.
dated 22.8.1977. It was further directed that the services of others who were
promoted as Upper Division Clerks earlier to Sri S.K. Yousufuddin but
,. passed the Account Test within the time limit after 7.8.1967 and who were
promoted to higher post of Managers be regularised with effect from F
3.5.1961 i.e. the date on which the services of Sri S.K. Yousufuddin are to
be regularised and that they be placed below Yousufuddin in the seniority
of Upper Division Clerks.
The Government also directed that the services of the other Lower G
Division Clerks who were promoted as Upper Division Clerks temporarily
prior to 15.3.1965 but passed the Account Test subsequently before
30.11.1974 and who have not been promoted to higher posts such as
Superintendents and Managers, on the date of issue of the amendment be
regularised from the date of regularisation of the services of the individuals H
876 SUPREME COURT REPORTS [1992) 2 S.C.R.
A who had already been promoted. After regulansmg the services of these
temporary Upper Division Clerks promoted prior to 15.3.1965, the services
of those who were promoted after 15.3.1965 be regularised.
The respondents Venkatesam and Ballaiah claimed seniority on the
B ground that they had passed the Account Test before 7.8.1967.
The question whether the protection givee by the second proviso in -~
regard to seniority applies to those persons who were holding the rank of
Upper Divison Clerks on 22.8.1977 was considered.
.c 1 ne protection afforded applies only to the regular Upper Division
Clerks who have passed the Account Test before 7.8.1967 and promoted
to higher posts and not to the Upper Division Clerks who have passed the
Account Test before 7.8.1967 and not promoted to the higher posts.
The intention of the Government. in issuing the second proviso in
D G.0.Ms. No. 822 P.R. dated 22.8.1977 is to protect only those who passed
the Account Test before 7.8.1967 and whose services in the category of
Upper Division Clerks were regularised and promoted to the higher posts
by 22.8.1977. It is not intended to benefit those persons who are not
regularised or promoted even though they had passed the Account Test
E before 7.8.1967.
The Trwunal in disposing of the petitions has overlooked the true
scope of the proviso in the light of the Government Order dated 7.8.1967
and _had uniformatly applied the protection afforded in the second proviso
F to all those persons who had acquired the test qualification before 7.8.1967
irrespective of the fact that they had been regularised and promoted to
higher. post before 1977. On a plain reading of the proviso in the light of
the various Government Orders, it is very clear that until the Upper
Division Clerks promoted before 15.3.1965 are regularised and promoted
to the higher post on their acquiring the test qualification before 7.8.1967,
G they do not get seniority over those who passed the test after 7.8.1967 but
within the time granted and the latter do not loose their seniority in favour
of their juniors who acquired the test qualification ..before 7.8.1967. The
Tribunal bas in para 93 of the judgment held thus: -
H "Consequently these persons who were not qualified up to
BAQAR HUSSAIN v. ZILLA PARISHAD [FATIIIMA BEEVI, J.] 877
'
7.8.1967 and who got the benefit of the amendment issued A
under G.O.Ms. No. 822 dated 22.8.1977 have to be treated as
junioi:' to those who, having passed the Accounts Test before
7.8.1967, were fully qualified for regular appointment as
U.D.Cs., irrespective of whether such persons were appointed
to the post of U.D.C., regularly by 22.8.1977 or not." B
.
We do not agree with this proposition. The passing of the Account
Test does not automatically result in regularisation of the appointment as
Upper Division Clerks. The persons .who were temporarily promoted
earlier had been. granted .concession to get qualified and when they ac-
quired such qualification they stood in the same position as those who C
passed the test earlier. The regularisation is not with reference to the date
of passing the test but with effect from the date of first promotion in such
cases. The regularisation with effect from a subsequent date is only in those
cases where the· juniors have already .been promoted to higher posts by
virtue of their test qualification. In such cases, the date on which such D
juniors are regularised would be the relevant date for the regularisation of
the seniors who passed the test subsequently (subsequent date mentioned
in the proviso covers only such cases). Once both categories are qualified
and becom.e eligible for .being regularised and considered for promotion
they are in the same stream and on par in all respects. They then belong E
to the same class. Once the appellants are eligible for regularisation under
the rules, they stand on the same queue as others according to seniority,
vide Chandrakant v. State of Gujarat, (1977] 2 SLR 605. ·-
We agree with the Tribunal that the protection under the latter part
of the proviso to Rule 4 is available to those Upper Division Clerks who F
·happened to be j~niors and who had also acquired the test qualification
and had been promoted to the higher posts on a regular basis though their
seniors ·acquired the test. qualification within the time allowed by the
Government. We however hold that such protection is not available to
those employees who remained in the same category of Upper Division G
Clerks and had been temporarily promoted as Upper Division Clerks
subsequent to the appellants though they had ·passed the tes~ before
7.8.1967.
We accordingly modify the judgment of the Tribunal to this extent H
\
878 SUPREME COURT REPORTS (1992] 2 S,C.R.
A and direct that the seniority list shall be prepared in all these cases in the
light of our findings and direct that consequential relief be granted to the
appellants in all these cases. The appeals are disposed of as above. In the
circumstances of the case, we make Iio order as to costs.
T.N.A. Appeals disposed of.
-'"1.,>- -
/
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