Holding

Promotion to a selection grade is governed by merit with due regard to seniority, and expungement of adverse remarks does not automatically restore seniority or back‑date the promotion.

Summary

The case concerned IFS officer Chandra Gupta, who was superseded for promotion because of adverse entries in his confidential reports. After those entries were expunged in a special review, Gupta was promoted to Chief Conservator of Forests, but other officers who had earlier been promoted contested his seniority. The Supreme Court examined whether expungement of adverse remarks restores seniority and dates back the promotion, and whether merit or seniority governs selection‑grade promotions under IFS Pay Rules. It held that promotion to a selection post is based on merit with due regard to seniority, not merely on seniority, and that expungement does not automatically restore seniority or back‑date the promotion. The Court also noted that no employee has a vested right to promotion and that the Tribunal’s interlocutory orders could not be appealed at this stage. Consequently, the appeals were dismissed.

Issues considered

Whether expunction of adverse remarks and consequent promotion restores the officer's original seniority and dates back the promotion to the date it was due.
Whether merit or seniority is the essential criterion for promotion to a selection grade under IFS Pay Rules 1968.
Whether officers affected by the expunction have a right to be heard and locus standi to challenge the expunction.
Whether the interlocutory orders of the Central Administrative Tribunal are appealable.
Whether allegations of fraud in the expunction process affect the validity of the promotion.

Legislation cited

Administrative Tribunal Act, 1985s. Section 21
All India Services (Confidential Rolls) Ruless. Rule 9
All India Services (Discipline and Appeal) Ruless. Rule 25
Constitution of Indias. Article 14, s. Article 16(1)
Forest Manuals. Rule 226, s. Rule 227
Indian Forest Service (Initial Recruitment) Regulations
Indian Forest Service (Pay) Ruless. Rule 3(3)
Indian Forest Service (Recruitment) Ruless. Rule 4
Indian Forest Service (Regulation of Seniority) Rules

Subjects

PromotionSenioritiesConfidential reportsExpunction of adverse remarksMerit vs seniorityAll India ServicesAdministrative lawNatural justice

Judgment

A CHANDRA GUPTA, IFS
v.
SECRETARY, GOVERNMENT OF INDIA, MINISTRY OF
. ENVIRONMENT AND FORESTS AND ORS.

SEPTEMBER 12, 1994
B
[M.N. VENKATACHALIAH, C.J., S. MOHAN AND
DR. AS. ANAND, JJ.]
J

SelVice Law-Confidential Report-Seniority and promotio~Selection
C post-Supersession of officer in .view of adverse remarks in confidential
reports-Expunction of adverse remarks after special review, and promotion
effected to selection grade-Whether superseded officer entitled to restoration
of seniorit)-Whether officers adversely affected by such expunction have right
to be heard-Held, in the promotion under consideration, merit and not mere
seniority is essentiaHn any event, factual finding of comparative merit by
.D the DPC would have to precede consideration for restoration of seniority-
Also, while question of locus standi of other affected officers in the matter of
expunction of adverse remarks left to Tribunal to decide, held, they may validly
urge that they brought to the notice of the authority that expunction had been
. obtained by fraud.
E
Constitution of India. Articles 14 and 16(1)-lndian Forest SelVice
(Pay) Rules 1968, R.3-All India SelVices (Discipline and Appeal) Rules
1969, R.2~All India SelVices (Confidential Rolls) Rules 1970, R.9--:lndian
Forest SelVice (Recruitment) Rules 1966, R.4(a) and 5-lndian Forest SelVice
F (Regulation of Seniority) Rules 196~ndian Forest selVice (Initial Recruit-
ment) Regulations 1966-Forest Manua~ Rr. 226/227.

Practice and procedure-Interlocutory order, appeal against-Tribunal
being in seisin of the matter, appeal dismissed with general obselVations

G The officers involved in these cases were all Indian Forest Service
.(IFS) Officers of the UP cadre. In view of adverse entries in the appellant's
confidential reports, he was superseded, and respondents 3, 4, 5 and, latter,
6 were promoted to the grade of Additional Chief Conservator of Forest
(ACCF) in selections held in August 1988. Thereafter, the adverse remarks
were expunged, in a special review and the appellant was promoted as Chief
H Conservator of Forests (which had, in the meantime, merged with the post
370
CHANDRA GUPTA v. MIN. OF ENVIRONMENT AND FORESTS 371

1lf of ACCF) in February 1990. Respondents 3, 4 and 5 moved the Tribunal A
to restrain Secretary, Department of Forests, State of UP fr()m .considering
the appellant and respondent 6 for promotion to the post of Principal Chief
Conservator of Forests before the claims of respondents 3 to 5 were con-
sidered, on the basis, inter alia, of the length of service of respondents 3 to
5 in the higher post.
B
The Tribunal held that mere expunction of adverse remarks sub-
sequently could not affect seniority. Persons who had already been ac-
corded promotion will continue to remain senior. •n related proceedings,
the Tribunal passed interlocutory orders directing the Staie to produce the
DPC record for making selection to the post of Principal Chief Conservator C
of Forests as well as the records pertaining to expunction of the adverse
entry in the confidential records of the appellant. Further, it directed that
the appellant shall not be given, or take charge, of the office of the Principal
Chief Conservator of Forests.

Before the Court, for the appellant it was urged that upon expunction D

-
of adverse remarks and subsequent promotion, the original seniority of the
concerned officer stood restored and the failure to restore the seniority
would be violative of Article 14 of the Constitution. For the respondents it
was contended that the expunction of remarks was based on misrepresenta-
tion and fraud; that the officers likely to be affected by the expunction of the
remarks had not been afforded an opportunity to put forth their objections; E
and that the promotions in this case was to a selection post to be filled by
merit with due regard to seniority and that only when the merit is equal
seniority becomes relevant in the matter of promotio°: to a selection post.

Dismissing the appeal, this Court F
HELD : 1. It cannot be held that on the expunction of adverse
remarks and consequential promotion, the promotion of the appellant
would date back to the date when it was due. Rule 3(3) of the IFS (Pay)
Rules 1968 provides that the selection shall be made by selection on merit
with due regard to seniority. Therefore what is essential is merit and not G
mere seniority. [377-G, 378-F]

Sant Ram Sharma v. State of Rajasthan, [1968] 1 SCR 111 and State
of Mysore v. Syed Mahmood, [1968] 3 SCR 363, relied on.

2. Even assuming the best in favour of the appellant, as a consequence H
372 SUPREME COURT REPORTS [1994) SUPP. 3 S.C.R.

A of expunction of adverse remarks, the appellant's case was liable to be
reviewed by the DPC for the post of Chief Conservator of Forest as on the
date when respondents 3 to 5 were so promoted. It could be done, provided
the appellant was found suitable for promotion on the basis of record. The
attention of the Court has nbt been drawn to any record from which it may
be concluded that after the expunction of adverse remarks, the record of
B service of the appellant was more meritorious than that of respondents 3
to 5. (389-D, E]

R.K Singh v. State of UP, (1991) Supp 2 SCC 126, referred to

3. Eligibility for promotion is one thing while actual promotion is a
c different thing. Even assuming on the strength of the ruling in R.K Singh
the.appellant is entitled to promotion on the date when he became eligible
for promotion but for these adverse entries, a factual finding requires to be
rendered as to whether the adverse entries for 1980-81 and 1981-82 were
actually communicated, and whether, after expunction of adverse remarks,
D there was a comparative estimate of the merits by the DPC. (390-C to DJ

4. It is well settled in law that no employee has a right or vested right
to promotion. (381-C]
..
Ramchandra Shankar Deodhar v. State of Maharashtra, (1974) 1 SCC
E 317; Mohammad ShujatAli v. Union of India, (1975) 3 SCC 76; ReseTVe Bank
of India v. C.T.Dighe, (1981) 3 SCC 545; State Bank of Maharashtra v.
Chandrakant Anant Kulkarni, (1981) 4 SCC 130; ReseTVe Bank of India v.
C.N. Sahasranaman, (1986] Supp SCC 143; Paluru Ramakrishnaiah v.
Union of India, (1989) 2 SCC 541 and K Jagadeesan v. Union of India,
(1990) 2 sec 228, relied on.
F
5. Confidentiality is underscored in the All India Services (Confiden-
tial Rolls) Rules 1970. These Rules do not provide for any opportunity of
raising objection being given to any other officer against the government's
decision for entering, or expunging, adverse remarks. Therefore, it follows
G that no legal right or locus standi can be given to any person to challenge
the expunction of an adverse entry. (379-H, 380-D]

Lakhi R,am v. State of Haryana, (1981) 2 SCC 674, referred to.

6. The respondent has alleged misrepresentation and fraud in the
H expunction of the adverse entries, which the appellant controverts.
CHANDRA GUPTA v. MIN. OF ENVIRONMENf AND FORESfS (MOHAN, J.) 373

Whatever may be the correctness of these allegations, what is sought to be A
urged by the respondent is that it is open to the respondent to bring to the
notice of the authority that expunction was made by the officer concerned
and the same has been procured by fraud. This could be validly urged.
[388-B, C]
7. It is however made clear that the general observations made in the B
judgment are not a decision on the locus standi of respondents 3 to 5 in
relation to the expunction of adverse remarks against the appellant.
[392-D]
8. Since the Tribunal is in seisin of the matter, the appeals are not
entertained at this stage, against interlocutory orders. [392-B] C
Union of India v. E.G.Nambudiri, [1991} 3 SCC 38, referred to.

CIVIL APPELLATE JURISDICTION: Civil Appeal No. 5996 of
1994.

From the Judgment and Order dated 15.9.92 of the Central Ad- D
ministrative Tribunal, Lucknow in R.O.A. No. 170/92.

With

Civil Appeal No. 5997 of 1994.
E
From the Judgment and Order dated 15.9.92 of the Central Ad-
ministrative Tribunal, Lucknow in R.0.A. No. 170/92.

And
Civil Appeal Nos. 5998-6000 of 1993. F
From the Judgment and Order dated 21.11.92, 27.11.92 & 2.12.92 of
the Central Administrative Tribunal, Lucknow in O.A. No. 617/92.

V.R. Reddy, Additional Solicitor General, Gobinda Mukhoty, P.P.
Rao, Sunil Gupta, K.J. John for Swarup John & Co., AK. Srivastava, G
Sanjay Parikh, Pramod Dayal, Ms. Sushma Suri, C. Ramesh, Rajat Kishan
and Shakil Ahmed Syed for the appearing parties.

The Judgment of the Court was delivered by

MOHAN, J. Leave granted. H
374 SUPREMECOURTREPORTS (1994)SUPP.3S.C.R.

A All these cases can be dealt with a under a common Judgment.

Civil Appeal arising out of SLP: (C) No. 16351 of 1992 has been
preferred by Chandra Gupta ,and Civil Appeal arising out of SLP (C) No.
16718 of 1992 has been preferred by the Secretary Department of Forest.
These appeals challenge the correctness of the judgment of Centrat Ad-
B ministrative Tribunal, Luc.know in O.A. No. 170 of 1992 dated 15.9.92 (as
amended on 18.2.92). Civil Appeal arising out of SLP (C) Nos. 1264-66 of
1992 preferred by Chandra Gupta are directed against the interlocutory
orders dated 21.11.92, 27.11.92 and 21.2.92. The parties will be referred to
as arrayed in Civil Appeal arising out of SLP (C) No .. 16531 of 1992.
c The Indian Forest Service is an All India Service. It is constituted
under Section 2(a) of the All India Services Act, 1951. The appointment
to the Indian Forest Service are made by the Central Government under
Rule 4 of the .Indian Forest Service (Recruitment) Rules of 1966
(hereinafter referred to as the Recruitment Rules). Inter se seniority of the
D officers appointed by the various methods to the Indian Forest Service is
determined by the orders issued by the Central Government under the
· provisions of Indian Forest Service (Regulation of Seniority) Rules of 1968
(for short Seniority Rules) in the Uttar Pradesh Cadre of Indian Forest
Service, the following grades are available for promotion of the officers:
E
S. No.· Grade Scale of Pay

1. Asstt. Conservator of.Forests (Junior Scale) 2200-4000

2. Dy. Conservator of Forest (Senior Time Scale) 3700-4500
F
3. Dy. Conservator of Forest (Senior Scale - Junior
Administrative Grade) 3700-5000

4. Dy. Conservator of Forest (Senior Sca'Ie - Selection
Grade) 5100-5800
G
5. Conservator of Forest (Super Time Scale) 4500-5700

6. Chief Conservator of Forests (Super Time Scale) 5900-6700

7. Principal Chief Conservator of Forest (above Super
H Time Scale) 7600 (fixed)
CHANDRA GUPTA v. MIN. OFENVIRONMENf AND FORESTS [MOHAN, J.) 375

Previously, the post of Chief Conservator of Forest was divided into A
two categories, namely, 1. Additional Chief Conservator of Forests and 2.
Chief Conservator of Forest. Both these posts were borne on the super-
time scale of Rs. 5900-6700. However, with effect from 31st of May, 1990
both these posts were re-designated and merged into the category of Chief
Conservator of Forests. On the appointment of an officer to the Indian B
Forest by the Central Government order Rule 4(a) of the Recruitment
Rules his promotion to the various grades within. the State is done by the
State Government. While doing so, the State Government must have regard
to the statutory Rules and the administratiye instructions issued by the
Central Government, from time to time. Particularly, regard must be had
to Rule 3(3) of the Indian Forest Service (Pay Rules). This is because that C
Rule lays down the mode of selection to the grade of senior scale/selection
grade. That Rule prescribes selection on merit with due regard to seniority.
The Government of India have also issued certain guidelines on 31st
January, 1985 to regulate the manner of effecting promotions.

The provision of Seniority Rules are independent of the various D
grades of posts to which officers of the Indian Forest Service are appointed
from time to time. Rule 5 requires the preparation of the gradation list of
State cadre as well as joint cadre of all the officers borne in that cadre and
arrayed in the order of seniority. The officers involved in these cases are
all Indian Forest Service officers of Uttar Pradesh cadre. Their Years of E
allotment of inter se placement in the cadre is as follows:

S.NO. Party Year of allotment
order of seniority

S/Shri F
1. Chandra Gupta Appellant 1963 1/2

2. R.S. Singh Respondent No. 3 1963 1/2

3. J.N. Srivastava Respondent No. 6 1963 1/2
G
4. R. S. Bhaduria Respondent No. 4 1964

5. K.C. Thapliyal Respondent No. 5 1964

In August 1988, for promotion to the grade of Additional Chief
Conservator of Forests selections were conducted. In the said selection H
376 SUPREME COURT REPORTS (1994) SUPP. 3 S.C.R.

A Chandra Gupta, appellant in Civil Appeal arising out of SLP (C) No. 16531
of 1992 and J.N. Srivastava; Respondent No.6 were not selected. R.S.
Singh, Respondent No. 3, R.S. Bhaduria, Respondent No. 4 and K.C.
Thapliyal, Respondent No. 5 were selected: Consequent to their selection
they were promoted to the grade of Additional Chief Conservator of
Forests with effect from 2.9.1988. Subsequently, J. N. Srivastava, Respon-
B dent No. 6 was considered for promotion to the grade of Additional Chief
Conservator of Forests. He was promoted to the grade with effect from
14.3.1989. As regards the appellant there were certain adverse entries, in
his confidential report for the years 1981-82, 1985-86 and 1986-87. In view
of these adverse entries when his case for promotion came to be cqnsidered
C in August 1988 he was superseded by Respondent Nos. 3 and 4. However,
the records disclose that the adverse remarks were expunged. Therefore, ·
his case for promotion to the grade of Chief Conservator of Forests was
considered fresh. He was promoted as Chief Conservator of Forests in
February 1990. Respondent 3, 4 and 5 moved the Central Administrative
D Tribunal in O.A. No. 170of1992 for prohibiting the Secretary,' Department
of Forest, Government of Uttar Pradesh from considering the appellant
and Respondent No.6 for promotion to the post of Principal Chief Con-
servator of Forests before the claims of Respondents 3 to· 5 were con-
sidered. There was also a prayer to restrain the State permitting
Respondent No. 4 and 5 to discharge the. duties of Chief Conservator of
E ·Forests. It was urged by Respondent Nos. 3 to 5 that under Indian Forest
Service (Initial Recruitment) Regulations, 1966 they were allotted 1963
1/2, 1964 and 1964 as years of allotment whereas the appellant and the 6th
Respondent were allotted 1963 1/2 as year of allotment.

F Respondent 3 superseded the appellant. Respondents 4 and 5 had
superseded the appellant and the 6th Respondent. Respondent No. 3 was
promoted as Chief Conservator of Forests before the appellant while
Respondents 4 and 5 were promoted before the appellant and the 6th
Respondent. As such Respondent Nos. 3 to 5 became senior to the
appellant and the 6th Respondent. Their length of service on the higher
G post was the basis of seniority. Therefore, even if the original order of
allotment of the appellant and the 6th Respondent was earlier they would
be junior to Respondents 3 to 5 since Respondent 3 to 5 were promoted
earlier than the appellant and the 6th Respondent. The mere fact, the posts
of Additional Chief Conservator of Forests and the Chief Conservator of
H Forests were merged on 31.5.1990, will not, in any manner, effect the fact
CHANDRA GUPI'A v. MIN. OF ENVIRONMENT AND FORESTS [MOHAN, J.) 377

of supersession and prior promotion. The case of the appellant before the A
tribunal was, his non-selection was due to certain adverse entries. These
adverse entries were not communicated to him. However, once they have
been expunged on his representation, he was found fit for promotion.
Wrong supersession will not affect seniority.

The State (Appellant in Civil Appeal arising out of SLP (C) No. B
16718 of 1992) supported-this stand. The Tribunal under the impugned
judgment referred to a few rulings of this Court and held mere expunction
of adverse remarks subsequently will not affect seniority. Persons who had
already been accorded promotion will remain senior. Thus the Tribunal
concluded: Respondents 3 and 4 should be considered senior. This Judg- C
ment is appealed against in Civil Appeal arising out of SLP (C) No. 16531
of 1992.

Mr. Sunil Gupta, learned counsel for the appellant states that the
Government of India, by its order dated 13th January, 1985, has provided
for a special review. Such a review is to be done in cases wherein the D
adverse remarks in the officers annual confidentiat reports are expunged
subsequently as a result of the representations. This necessarily implies the
decision of an earlier Departmental Promotion Committee to promote an
officer stands reviewed of revised by a new decision of the Departmental
Promotion Committee to promote the officers concerned thereby leaving E
the seniority of the officer over his juniors unaffected. If on expunction the
original seniority of the officer is denied that would result in great arbitrari-
ness and injustice violating Article 14 of the Constitution of_ India. The
Tribunal ought to have approached the question in a proper perspective
instead of merely declaring the seniority of Respondents 3 to 5 above the
appellant. While, in fact, the appellant was senior to them. The Tribunal F
erred in relying on decisions which have no relevance to the issue involved
a
which is short one here, namely, on the expunction of adverse remarks
and a consequential promotion being accorded, whether such a promotion
dates back to the date when it was due. By such dating back the promotions
.of the juniors are not, in any manner, disturbed. G
In support of this submission reliance is placed on R.K Singh v. State
of U.P. and others, [1991] Supp. 2 SCC 126.

The State which is the appellant in Civil Appeal arising out of SLP
(C) No. 16718 of 1992 supports this stand and adds, where. a person has H
;J78 . SUPREME COURT REPORTS (1994] SUPP. 3 S.C.R.

A been wrongfully left out of consideration by reason of adverse entries, on
expunction of these adverse entries he should be entitled to his due
promotion. Merely because the appellant and the 6th respondent were not
given promotion on account of uncommunicated adverse entries which
Were subsequently expunged, seniors like the appellant and the 6th respon-
dent cannot be deprived of their legitimate due.
B
Learned counsel for the respondents would submit, first and
foremost the expungement of the remarks for the years 1980-81 and
1981-82 was based on misrepresentation of the appellant that they were
never communicated to him. On the contrary, the records clearly establish
C these adverse entries were, in fact, served on him. The counter affidavit
contains all the details. If, therefore, those adverse entries have been
communicated and the appellant had, in fact, acknowledged, the plea that
he was not communicated will clearly amount to fraud.

It is not the case of the respondent that before expunging the adverse
D remarks the officer or all other officer who are likely to be affected must
be afforded an opportunity to put forth their objections. What is urged is
that it is open to the affected officer to bring to the notice of the authority
the fact that expunction was made on misrepresentation made by the
officer concerned and was procured by fraud. In fact, this Court has held
E in Lakhi Ram v. State of Haryana, (1981] 2 SCC 674 an officer whose
chances of promotion are prejudiced by Government's action, expunging
the adverse remarks has locus standi to maintain a writ petition challenging
the expunction.

These respondents were promoted as Chief Conservator of Forests
F by virtue of the superior merit and suitability since this is a selection post
to be filled by merit with due regard to seniority. Only when the merit is
equal in the matter of promotion of a selection post seniority becomes
relevant. Otherwise, merit alone counts. In support of this submission
reliance is placed on Sant Ram Shanna v. State of Rajasthan, (1968] 1 SCR
G 111 at pages 118-119.

Mere expunction of remarks itself will not make the appellant more
meritorious. The ratio of the judgment of this Court in State of Mysore v.
Syed Mahmood, [1968] 3 SCR 363 will apply. Unless and until, therefore,
the appellant proves that after expunction .of remarks he had a more
H meritorious record than these respondents, he cannot succeed. In any
CHANDRAGUPrA v.MIN.OFENVIRONMENTANDFORESTS(MOHAN,J.) 379

event, in so far as the review is concerned the Departmental Promotion A
Committee considered the case of the appellant after the expungement and
directed that he might be promoted prospectively to the post of Chief
Conservator of Forests. The appellant cannot have any grievance.

The restoration of old seniority would amount to violation of Ar-
ticles 14 and 16(1) of the Constitution of India as held by this Court in S.K B
Ghosh v. Union of India, (1%8] 3 SCR 631 at pages 637-38. Thus, it is
prayed that the Civil Appeals may be dismissed.

In Civil Appeals arising out of SLP(C) Nos. 1264-1266 of 1993 it is
urged that these interlocutory orders adversely affected the appellant. C
Once the adverse remarks have been expunged and the appellant has been
directed to be promoted to the post of Chief Conservator of Forests there 2>'
cannot be any roving inquiry concerning these aspects. Nor again, the order
dated 27.11.92 is relevant to the issue.

Learned counsel for the respondents submits that it is never the D
practice of the Court under Article 136 of the Constitution of India to
interfere with the interlocutory orders, more so, when the main case is
part-heard before the Tribunal. In any event, the production of those
records, as directed by the Tribunal, is necessary for a proper adjudication.

The short question that arises for consideration in this case is on the E
expunction of adverse remarks of the appellant and consequent promotion
under a special review process, whether the promotion dates back to the
date when it was due? On such according of promotion, how is seniority
of the officers to be reckoned? · ·

Before we go to the core of this question we would like to deal with
F
certain important aspects which arise repeatedly before this Court.

(1) The nature of confidential rolls.

(2) Before expunction of adverse entries the officer likely to be G
affected has a right to be heard.

A careful reading of the All India Services (Confidential Rolls) Rules
1970 (hereinafter referred to as the Confidential Rolls Rules) clearly
establishes that what is underscored in these Rules is confidentiality. Even
the concerned officer against whom the entries are made hardly any chance H
380 SUPREME COURT REPORTS (1994] SUPP. 3 S.C.R.

A of known about the entries. Of Course, it is a different matter if in adverse
entry is made. Prior to making such an entry the officer concerned could
have no knowledge. It is only after the entry is made an opportunity is
provided to him to make a representation. This is evident ·from Rule 9 of
the Confidential Rolls Rules. It reads as under :
B "9. Representation against adverse remarks. -

A member of the Service may represent to the Government
against the remark communicated to him under rule 8 within 45
days of the date of its receipt by him:
c Provided that the Government may entertain a representation
within three months of the expiry of the said period if it is satisfied
that the member of the service had sufficient cause for not sub-
mitting the representation in time."

D The said Rules do not provide for any opportunity of objection being
given to any other officer against the Government decision for entering the
remarks or expunging those remarks. Therefore, it should follow that no
legal right or locus standi can be given to any person to challenge the
expunction of an adverse entry.
E This Court in Lakhi Ram v. State of Haryana, (1981] 2 SCC 674 &
675 held as under :

"............The appellant filed the writ petition challenging the
action of the government expunging the adverse remarks made in
F the annual confidential report of respondent 6. The High Court
took the view that the appellant Was not entitled to complain
against the expungement of adverse remarks made in the confiden-
tial report of another officer. But this view is, in our opinion,
erroneous because the effect of expungement of adverse remarks
in the confidential report of respondent 6 is to prejudice the
G chances of promotion of the appellant and if the appellant is able
to show that the expungement of ·the remarks was illegal and
invalid, the adverse remarks would continue to remain in the
confidential report of respondent 6 and that would improve the
chances of promotion of the appellant vis-a-vis respondent 6. The
H appellant was therefore, clearly entitled to show that the govern-
CHANDRA GUPTA v. MIN. OF ENVIRONMENT AND FORESI'S [MOHAN, J.) 381

ment acted beyond the scope of its power in expunging the adverse A
remarks in the confidential report of respondent 6 and that the
expungement of the adverse remarks should be cancelled. The
appellant had, in the circumstances, locus standi to maintain the
writ petition and the High Court was in error in rejecting it on the
ground that the appellant was not entitled to maintain the writ B
petition."

What is required to be carefully noted is the Court was considering
the effect of expungement of adverse remarks which was likely to prejudice
the chances of promotion. It is well-settled in law that no employee has a
right or vested right to chances of promotion as held by this Court in C
Ramchandra Shankar Deodhar v. The State of Maharashtra, (1974] 1 SCC
317 at 329:

"........ .It is now well settled by the decision of this Court in State
of Mysore v. G.B. Purohit that though a right to be considered for
promotion is a condition of service, mere chances of promotion D
are not. A rule which merely effects chances of promotion cannot
be regarded as varying a condition of service. In Purohit's case the
districtwise seniority of sanitary inspectors was changed to
Statewise seniority, and as a result of this change the respondents
went down in seniority and became very junior. These, it was urged, E
effected their chances of promotion which were protected under
the proviso to Section 115, sub-section (7). This contention was
negatived and Wanchoo, J., (as he then was), speaking on behalf
of this Court observed : "It is said on behalf of the respondents
that as their chances of promotion have been affected their con-
ditions of service have been changed to their disadvantage. We see F
no force in this argument because chances of promotion are not
conditions of service".

The same principle is reiterated in t~e following cases:
G
In Mohammad Shujat v. Union of India, [1975] 3 SCC 76 at page 95
this Court held thus:

"........ .It is true a rule which confers a right of actual promotion
or a right to be considered for promotion is a rule prescribing a
condition of service. This proposition can no longer be disputed H
382 SUPREME COURT REPORTS [1994] SUPP. 3 S.C.R.

A in view of several pronouncements of this Court on the point and
particularly the decision in Mohammad Bhakar v. Y. Krishna

-
Reddy, where this Court, speaking through Mitter, J., said:: "any
rule which affects the promotion of a person relats to his conditions
of service". But when we speak of a right to be considered for
promotion, we must not confuse it with mere chance of promotion
B - the latter would certainly not be condition of service."

Again, in Reserve Bank of India v. C.T. Dighe, [1981] 3 SCC 545 at
556 this Court held thus :

"...... .It is will settled that a rule which affects the promotion of
c a person relates to his condition of service but this is not so what
is affected is a chance of promotion only. This Coutt in Mohd.
Shujat Ali v. Union of India, held :

"But when we speak of a right to be considered for promotion,
D we must not confuse it with mere chance of promotion - the latter
would certainly not be a condition of service ... that though a right
to be considered for promotion is a condition of service, mere
chances of promotion are not."

In Shujat Ali case the respondents went down in seniority and it
E was urged that this affected their chances of promotion."

Again, in State Bank of Maharashtra v. Chandrakant Anant Kulkarni,
[1981] 4 SCC 130 at page 141 this Court held thus :

"......... Mere chances of promotion are not conditions of service
F and the fact that there was reduction in the chances of promotion
did not tantamount to a change in the conditions of service. A right
to be considered for promotion is a term of service but mere ·
chances of promotion are not."

G Again, in Reserve Bank of India v. C.N. Sahasranaman, [1986] SCC
148 at pages 158-159 this Court held thus :

"This Court had also observed that the right of promotion
should not be confused with mere chance of promotion. Though
the ~ight to be considered for promotion was a condition of service,
H mere chances of promotion were not. See Mohd. Shujat Ali v.
CHANDRA GUPTA v. MIN. OF ENVIRONMENf AND FORFSfS [MOHAN, J.) 383

Union of India, See Also in this connection the observations in R.S. A
Deodhar v. State of Maharashtra, (1974] 2 SCR 216 at 230 and
Reserve Bank of India v. C.T. Dighe, (1981] 3 SCC 545, 556."

Again in Pa/um Ramkrishnaan v. Union of India, [1989] 2 SCC 541
at 552 this Court held thus :
B
"In the case of Ramchandra Shankar.Deodhar the petitioners
and other allocated Tehsildars from Ex-Hyderabad State had
under the notification of the Raj Pramukh dated September 15,
1955 all the vacancies in the posts of Deputy Collector in the
ex-Hyderabad State available to them for promotion but under C
subsequent rules of July 30, 1959 50 per cent of the vacancies were
to be filled by direct recruitment and only the remaining 50 per
cent were available for promotion and that too on divisional basis.
The effect of this change obviously was that now only 50 per cent
vacancies in the post of Deputy Collector being available in place D
of all the vacancies it was co take almost double the time for many
other allocated Tehsildars to get promoted as Deputy Collectors.
In other words, it resulted in delayed chance of promotion. It was,
inter alia, urged on behalf of the petitioners that the situation
brought about by the rules of July 30, 1959 constituted variation
to their prejudice in the conditions of service applicable to them E
immediately prior to the reorganisation of the State and the rules
were consequently invalid. While repelling this submission the
Constitution Bench held :

All that happened as a result of making promotions to the posts F
of Deputy Collectors divisionwise and limiting such promotions to
50 per cent of the total number of vacancies in the posts of Deputy
Collector was to reduce the chances of promotion available to the
petitioners. It is now well settled by the decision of this Court in
State of Mysore v. G.B. Purohit that though a right to be considered
for promotion is a condition of service, mere chances of promotion G
are not. A rule which merely affect chances of promotion cannot
be regarded as varying a condition of service. In Purohit case the
districtwise seniority of sanitary inspectors was changed to
Statewise seniority, and as a result of this change the respondents,
went down in seniority and became very junior. This, it was urged, H
384 SUPREME COURT REPORTS (1994) SUPP. 3 S.C.R.

A affected their chances of promotion which were protected under
the proviso to Section 115. sub-section (7). This contention was
negatived and Whancho, J., (as he then was), speaking on behalf
of this Court observed: "It is said on behalf of the respondents that
as their chances of promotion have been affected their conditions
of service have been changed to their disadvantage. We seen no
B force in .this argument because chances of promotion are not
conditions of services." It is, therefore, clear that neither the Rules
of July 30, 1959 nor the procedure for making promotions to the
posts of Deputy Collector divisionwise varies the conditions of
service of the petitioners to their disadvantage."
c
Again, in K Jagadeesan v. Union of India, (1990) 2 SCC 228 at 230
this Court held thus :

".......... A right to be considered for promotion is a ter.m. of
service, but mere chances of promotion are not."
D
As to .the applicability of natural justice, while rejecting the repre-
sentation against expunction of advise remarks by a speaking order this
Court pointed out in Union of India v. E.G. Nambudiri, (1991) 3 SCC 38
at 45 as under :
E
"There are however, many areas of administrative activity where
no reasons are recorded or communicated, if such a decision is
challenged before the Court for judicial review, the reasons for the
decision may be placed before the court. The superior authority
F • while considering the representation of a government servant
against adverse remarks, is not required by law to act judicially, it
is under no legal obligation to record or communicate reasons for
its decision to the government servant. The decision, rejecting the
representation does not adversely affect any vested right of the
Government servant nor does it visit him with any civil consequen-
G ces. In many case having regard to infinite variations of circumstan-
ces, it may not be possible to disclose reasons for the opinion
formed about the work and conduct or character of the govern-
ment servant."

H At page 46 it was held thus :
CHANDRA GUPTA v. MIN. OF ENV1RONMENI' AND FORESI'S [MOHAN, J.) 385

"There is no dispute that there is no rule or administrative order A
for recording reasons in rejecting a representation. In the absence
of any statutory rule or statutory instructions requiring the com-
petent authority to record reasons in rejecting a representation
made by a government servant against the adverse entries the
competent authority is not under any obligation to record reasons.
But the competent authority has no licence to act arbitrarily, he B
must act in a fair and just manner. He is required to consider the
questions raised by the government servant and examine the same,
in the light of the comm~nts made by the officer awarding the
adverse entries and the officer countersigning the same. If the
representation is rejected after its consideration in a fair and just C
manner, the order of rejection would not be rendered illegal
merely on the ground of absence of reasons. In the absence of any
statutory or administrative provision requiring the competent
authority to record reasons or to communicate reasons, no excep-
tion can be taken to the order rejecting representation merely on
the ground of absence of reasons. No order of an administrative D
authority communicating its decision is rendered illegal on the
ground of absence of reasons ex f acie and it is not open to the
court to interfere with such orders merely on the ground of absence
of any reasons, However, it does not mean that the administrative
authority is at liberty to pass orders without there being any reasons
for the same. In governmental functioning before_ any order is E
issued the matter is generally considered at various levels and the
reasons and opinions are contained in the notes on the file. The
reasons contained in the file enable the competent authority to
formulate it opinion. If the order as communicated to the govern-
ment servant rejecting the representation does not contain any F
reasons, the order cannot be held to be bad in law. If such an order
is challenged in a court of law it is always open to ·the competent
authority to place the reasons before the court which may have led
to the rejection of the representation. It is always open to an
administrative authority to produce evidence aliunde before the
court to justify its action." G

The appellant has suffered adverse entries for the years 1980-81,
1981-82, 1986-87 and 1987-88.

The case of the appellant is the adverse entries for the years 1980-81 H_
386 SUPREME COURT REPORTS [1994] SUPP. 3 S.C.,R.

A and 1981-82 were not communicated to him in time. Concerning the
adverse entries for 1986-87 the appellant filed a representation on 14.9.87.
That was rejected by State Government on 16.11.87. On 12.1.88 the appel-
lant filed a representation against the adverse entries for 1987-88. That was
rejected by the State Government on 19.5.88. Eventually, the adverse
entries got expunged by the President of India, by reason of a memorial
B
filed under Rule 25 of the All India Services (Disciplines and Appeal)
Rules, 1969. The memorial was allowed by the President of India on
27.9.89.' At this stage we have to find out whether the stand of the appellant
that the adverse entries for the years 1980-81and1981-82 were not actually
communicated is correct. In paragraph 31 of the affidavit filed by Shri R.S.
C Singh, Respondent No.3 it is stated thus :

"The fact that the said expunction orders have been obtained
by playing fraud and mis-representation by the petitioner will be
apparent from the following:

D (i) That for the year 1980-81 the adverse entries were communi-
cated by the Chief Conservator of Forest U.P. Lucknow vide his
letter dated 3.3.1982, copy of the said letter was sent to the Addi.
Chief Conservator of Forest and the Director Social Forestry
Lucknow for further transmission to the petitioner who was work-
E ing at that time as Divisional Director Social Forestry, Etawah
D.F.C. Etawah.

(ii) That the Addi. Chief Director, Social Forestry Lucknow
vide his letter dated 5.3.1982 sent a copy of the letter dated 3.3.1982
of the Chief Conservator of Forests directly to the petitioner. A
F photocopy of the letter dated 5.3.1982 is being enclosed as An-
nexure CA 2 to this affidavit.

(iii) That the petitioner sent acknowledgment of the letter of
the Chief Conservator of Forests No. E-164 TC/10-4 (Chandra
Gupta) dated 3.3.1982 on 6th May, 1982 duly entered in Camp.
G
Despatch register of the office of Divisional Director, Social
Forestry/D.F.O., Etawah. It is stated that photocopy of this
despatch register which is in Hindi has been placed on the record
of the Tribunal. A translated copy of the despatch register is
annexed hereto and marked as Annexure CA-3 to this affidavit. It
H is submitted that effect of this document is that the letter of Chief
CHANDRA GUPTA v. MIN. OF ENVIRONMENT AND FORESI'S (MOHAN, J.J 387

Conservator of Forest bearing No. E.164 TC/10-4 (Chandra A
Gupta) dated 3.3.1982 was duty acknowledged by the petitioner,
communication adverse entry for the year 1980-81. The receipt of
which was acknowledged by petitioner and entered in camp
despatch register bearing letter no 206 TC dated 6.5.1982. Thus
the case of the petitioner that he was not communicated of the
adverse entries for the year 1980-81 was wholly false, misconceived B
and wholly wrong.

(iv) That the Chief Conservator of Forest again vide his letter
No. 373ffC-10 4-(Chandra Gupta) dated 17/20th December, 1982,
communicated the adverse entry for the year 1981-82 to the
petitioner through office of Addl. Chief Conservator and Director C
Social Forestry, Lucknow.

(v) That the Addl. Chief Conservator of Forest and the Direc-
tor Forestry Lucknow vide his letter No. 637/2-32-2 dated 7.3.1983
sent Chief Conservator of Forest's letter dated 17/20th December, D
1982 to the petitioner through Conservator of Forest, Agra. The
above letter was despatched under letter No. 3712/2-32 dated
17.1.1983 from the office of Conservator of Forest, Agra along with
a number of other letters. A true copy of the letter dated 7.1.1983
is being filed as Annexure CA-4 to this affidavit.
E
(vi) That as the above entries were communicated in later point
of time while the petitioner fell due for promotion to the post of
Conservator of Forest and consequently he was promoted on the
0

post of Conservator of Forest '(1800-2000) vide order dated
15.1.1983 and it appears that the D.P.C. had no occasion to
consider the above two adverse entries in view of the facts that F
their communication and the entry of period of making repre-
sentation had not expired at that time.

(vii) That the petitioner sent acknowledgment letter dated 20th
December, 1982, vide letter No. 82 TC dated 26.2.1983 duly intered G
in the camp dale despatch register in the office of Divisional
Director Social Forestry Etawah.

Thus the case of the petitioner that he was not communicated
adverse entry for the year 1981-82 is totally falsified from these
documents." H
~88 SUPREME COURT REPORTS [1994) SUPP. 3 S.C.R.

A In his rejoinder the appellant would controvert that no copy of the
alleged acknowledgement letter dated 6.5.82 was made available by the
respondent. Under Rules 226 and 227 of the Forest Manual such a copy
should exist. The theory of receipt of any such letter dated 5.3.82 is
falsified. Equally, the entry of the camp despatch register has been manipu-
lated. If really, the letter dated 5.3.82 had not been acknowledged there
B should have been reminders in this regard. Equally, the allegation, the
adverse entry for 1981-82 was sent by the Chief Conservator of Forests
under his letter dated 20th December, 1982, is also unreliable. Whatever
may be the correctness of these allegations what is sought to be urged by
the respondent is that it is open to the respondent to bring to the notice
c of the authority that expunction was made by the officer concerned and
the same has been procured by fraud. We think that could validly be urged .

. No doubt, a special review is provided for under clause III(vi) of the
Government's orders dated 31.1.85. That reads as follow:

D "Special review may be done in cases where the adverse
remarks in the officers' annual confidential.reports' are expunged
subsequently as a result of their representations."

On this score, we are unable to hold that on the expunction d
E adverse remarks and consequential promotion the appellant would date
back to the date when it was due. First of all, the method of selection is:
"Selection should be made on merit with due regard to seniority in terms
of Rule 3(3) of the Indian Forest Service (Pay) Rules, 1968."

That Rule reads as follows:
F
"3. Time-scale of pay -

(1) .... .

(2) .... .
G
(3) Appointment to the Selection Grade and to posts carrying
pay above the time-scale of pay in the Indian Forest Service shall
be made by selection on merit with due regard to seniority."

Therefore, what is essential is merit and not mere seniority. This
H Court in Sflnt Ram Sharma v. State of Rajasthan, [1968) 1 SCR 111 at 118
CHANDRA GUPTA v. MIN. OF ENVIRONMENf AND FORESTS [MOHAN, J.] 389

has stated follows : A
".......it is a well-established rule that promotion to selection
grades or selection posts is to be based primarily on merit and not
on seniority alone. The principle is that when the claims of officers
to selection posts is under consideration, seniority should not be
regarded except where the merit of the officer is judged to be equal B
and no other criterion is therefore available."

Again this Court in State of Mysore v. Syed Mahmood, [1968] 3 SCR
363 at 366 held thus :

"Where the promotion is based on seniority-cum-merit the
c
officer cannot claim promotion as a matter of right by virtue of his
seniority alone."

Therefore, even assuming the best in favour of the appellant as a
consequence of expunction of adverse remarks, the appellant's case was D
liable to be reviewed by the Departmental Promotion Committee for the
post of Chief Conservator of Forest as on the date when Respoddent 3 to
5 were promoted it could be done, provided the appellant was found
suitable for promotion on the basis of record. Our attention has not been
drawn to any record from which conclusion could be arrived at that after E
the expunction of adverse remarks, the record of service of the appellant
was more meritorious than that of Respondents 3 to 5.

The learned counsel for the appellant strongly relies bn R.K Singh
v. State of U.P., [1991] Supp. 2 SCC 126. This Court at pages 126-127 held
~ F
"There is no dispute that during the pendency of this appeal
the appellant's representation against the adverse entries has been
allowed and these entries have been expunged from his service
record. Since the adverse entries were expunged the State Govern- G
ment by its order dated January 24, 1991 granted Selection Grade
to the appellant with effect from the date he takes over charge.
We fail to appreciate the view taken by the State Government.
Once the adverse entries awarded to the appellant were expunged
the appellant is entitled to Selection Grade with effect from
January 1, 1986 the date on which he was eligible for grant of H
390 SUPREME COURT REPORTS {1994) SUPP. 3 S.C.R.

A Selection Grade. We, accordingly, allow the appeal, set aside the
order of the Central Administrative Tribunal and modify the order
of the State Government dated January 24, 1991 and direct that
the appellant i.hall be treated in Selection Grade with effect from
January 1, 1986 and he will be entitled to all other consequential
benefits with effect from that date. As regards appellant's further
B promotion, he will be considered for promotion in accordance with
Rules."

What requires to be carefully noted is eligibility for promotion is one
thing while actual promotion is a different thing. Even in this ruling
C promotion in accordance with the Rules alone was what was directed. Even
assuming on the strength of this ruling the appellant is entitled to promo-
tion on the date when he became eligible for promotion but for fhese
adverse entries, a factual finding requires to be rendered on the following
aspects:•
I
D 1. Whether the adverse entries for 1980-81and1981-82 were actually
communicated?

2. After expunction of adverse remarks whether there was a com-
parative estimate of the merits by the Departmental Promotion Commit-
tee?
E
These are matters pending adjudication in O.A. No.617 of 1992.
Therefore, we restrain from saying anything more as to the entitlement of
seniority of the appellant over Respondents 3 to 5. That will depend upon
the decision in 0.A. No. 617 of 1992.
F
On 16.2.90 the following order was passed :

"From

G. Ganesh,
G Secretary,
Govt. of Uttar Pradesh.

To,

The Principal Chief Conservator
H of Forests,
CHANDRA GUPTA v. MIN. OF F.NVIRONMENT AND FORESI'S iMOHAN, J.] 391

Uttar Pradesh, Lucknow. A
Forest Deptt. - One Dated 16.2.90

Sub : Promotion of Sri Chandra Gupta, Conservator of Forests,
b1dian Forest Service to the post of Chief £nservator of Forests.
B
Sir,

On the subject as noted above I have been directed to say that
the Hon'ble Governor has ordered for the promotion of Sri
Chandra Gupta on the post of Chief Conservator of Forests in the C
scale of 5900-6700 from the date of his taking over the charge.

Hon'ble Governor also orders about the appointment/posting
of Sri Chandra Gupta on the post of Chief Conservator of Forests
(Seed and Research). Notification concerning the promotion of
Sri Chandra Gupta will be issued after he assumes charge of the D
post concerned.

Your faithfully,

sd/-
(G. Ganesh) E
Secretary"

The appellant was not satisfied with this. He was wanting the res- ·
toration of seniority over Respondents 3 to 5. That necessitated the
Respondents 3 to 5 to challenge the orders by which the adverse remarks
against the appellant harl been expunged and the consequential promotion F
made under the above order dated 16.2.90 in O.A. No.617of1992. Pending
that O.A. three interim orders have been passed.

(1) Order dated 21.11.92 directing the StaL Government to produce
DPC record for making selection for the post of Principal Chief Conser- G
vator of Forests and records pertaining to expunction of adverse entry of
the appellant.

(2) Order dated 27.11.92 directing that the appellant shall not be
given or take charge of the office of Principal Chief Conservator of Forests
to permit the State Government to give charge to any person in case it is H
392 SUPREME COURT REPORTS [1994) SUPP. 3 S.C.R.

A required.
(3) Order dated 2.12.92 directing the earlier interim order to con-
tinue. That order is significant because it opens with the words "A case has
been heard in part~us, it is beyond.doubt that Tribunal is in seisin of
the matter. No doubt, rival contentions are raised on :
B
1. Locus standi ·

2. Constructive res judicata

3. Limitation under Section 21 of the Administrative Tribunal Act.
c ,'1985.
We do not think we should entertain the civil appeal at this stage
against interlocutory orders. We make it clear that by our general obser-
vations made above we have not decided about locus standi of Respondents
3 to 5 in· relation to the expunction of adverse remarks against the appel-
D lant.
In the result, all the civil appeals will stand dismissed s~bject to the
above observations. However, there shall be no order as to costs.

Appeals dislnissed.