GOVERNMENT OF ORISSAversusSHRI HARAPRASAD DAS AND ORS.

A                          GOVERNMENT OF ORISSA
                                          v.
                    SHRI HARAPRASAD DAS AND ORS.

                              NOVEMBER 24, 1997

B                [G.T. NANA VA TI AND S.P. KURDUKAR, JJ.]


         Service Law :

         Recruitment process-Selection list-Tribunal directecd the Government
C to appoint candidates from the selection list-Held, that mere empane/ment
    or inclusion of one's name in the selection list does not give him a right to
    be appointed-To fill up or not to fill up a post, is a policy decision of the
    Government-No interference called for unless Government decision is
    arbitrary.
D        Selection list-Does not confer any right on the candidate whose name
    is included therein-Where Government decides not to make further
    appointments for valid reasons, it cannot be held, arbitrary.
         Orissa Government Press Industrial Employees Classification, Promotion,
    Conditions of Service and Appeal Rules, 1978 :
E         Rules 9 and I 0-Direct recruritment and recruitment of in-service
    candidates-Difference between-Appointment and Promotion Committee-
    Held, has a role to play in case of recruitment of in-service employees and
    promotion of employees but has no role to play in case of direct recruitment
    from open market.

F          Rule II (v)-Selection list-Period of validity of-Held, the period of
    one year prescribed in the Rule has to be reckoned from the date on which
    the list is drawn even if the list requires approval of another authority after
    it is drawn.
           Words and Phrases- "Drawn"-Meaning of -In the context of Rule
G   I I(v) of the Orissa Government Press Industrial Employees Classification,
    Promotion, Conditions of Service and Appeal Rules, 1978
           Six vacancies of Copy holders in the Government press were required
    to be filled up by direct recruitment in accordance with the Orissa Governemnt
    Press Industiral Employees Classification, Promotion, Conditions of Service
    and Appeal Rules. On 13. 7.1993 a selection list was prepared category wise.
H                                        338
               GOVT. OF ORRISA v. HARAPRASAD DAS                           339
 Nine cadidates were empanelled in the general category and five each in the     A
 category of SC and ST candidates. Subsequently vacancies increased to IS
 and S posts were filled up according to their roster points. Government
 imposed a ban on selection list twice: The respondents who were put on the
 selection list, made representions for their appointment from that list which
 was rejected. Therefore, the respondents moved the Tribunal for a direction
 to the Government to appoint them from the selection list, which was allowed    B
 by the Tribunal in spite of the stand of the Government that there was a ban
 on the selection list and also that selection list had expired after one year
 under Rule 11 (v). Hence this appeal by the State.

       Allowing the appeal, this Court

       HELD: I. Merely because there were some vacant posts of · C
Copyholders and the Director of the Press had recommended to the
Government to fill up those posts, it was not open to the Tribunal to direct
the Government to fill up those posts, even though it had good reasons not
to do so. It should have been appreciated by the Tribunal that mere cmpanelment
or"inclusion of one's name in the selection list does not give him a right to
be appointed. So also if the Government decides not to make further D
appointments for a valid reason, it cannot be said that it has acted arbitrary
by not appointing those whose names are included in the selection list. To
fill up or not to fill up a post, is a policy decision and unless it is shown to
be arbitrary, it is not open to the Adminstrative Tribunal to interfere with
such decision of the Government and direct it to make further appointments. E
The Tribunal in directing the Government to make further appcintments on
efficiency ground of public adminstration went beyond its jurisdiction.
                                                                     (343-B-D]

         2. Rules 9 and JO of Orissa Government Press Industrial Employees
  (Classification, Recruitment, Pormotion, Conditions of Service and Appeal)
  Rules deal with recruitment of in-service employees and promotion of p
  employees. Appointment and Promotion Committee referred to in these Rules
  has no role to play in case of direct recruitment from open market. The
  Administrative Tribunal W!"IS therefore wrong in holding that the selection
  list prepared for direct recruitment from open market was required to be
  approved by the said committee and it would become a valid selection list only
  after its approval by the said Committee. The Tribunal also failed to appreciate G
  that if the selection list was not valid since it was not approved by the
  Committee then it could not have conferred any right in favour of those who
  were included in the said list and it would not be legal to make appointments
. to those included in such an invalid list. Rule ll(v) does not speak of any
 approval by the Appointment and Promotion Committee. Moreover, it does not
  provide that it will remain valid for one year from the date of approval by such H
    340                      SUPREME COURT REPORTS (1997] SUPP. 5 S.C.R.

A   Committee. The language used in the Rule is very clear and admits of no
    ambiguity. It provides that the selection list once drawn will remain valid for
    one year. What the Tribunal failed to appreciate was the significance of the
    word "drawn" u.sed in the said Rules. Therefore, according to the Rules, the
    period of one year starts running from the date on which a selection list is
B   drawn. l.n the present case, the selection list was drawn up on 13.7.1993. It,
    therefore, expired on 12.7.1994. The Government was, therefore, justified in
    not making any further appointment from the said list after 12.7.1994. The
    Tribunal in directing the Government to make further appointment from the
    said dead list has committed an illegality in exercise of its jurisdiction. Even
    if the said Rule is created as directory and not mandatory, it was not for the
C   Tribunal to direct the Government to create it as "live" and in force and to
    make further appointments from that list. [343-H; 344-A-F[

          CIVIL APPELLATE JURISDICTION: Civil Appeal No. 8258of1997.

         From the Judgment and Order dated 22.1.96 of the Orissa Administrative
D   Tribunal, Bhubaneswar in O.A. No. 346 of 1995.

          Dinabanbhu Mishra and Jana Kalyan Das for the Appellant.

          R. S. Jena for the Respondents.

          The Judgment of the Court was delivered by
E         NANA VA Tl, J. Leave granted.

          Heard learned counsel for the parties.

          This appeal Orissa out of the order passed by the Orissa Administrative
    Tribunal in 0. A. No. 346 of 1995. The 0.A. was filed by the four respondent
    against the Government of Orissa and the Director of Printing, Stationery and
F
    Publication for a declaration that they are entitled to be appointed as Copy
    Holders and for an appropritate direction to the Government and the Director.

           The Orissa Government is running a Press and in its Production Branch
    it has a Proof Reading Section. Proof Readers working in that Section are
G   assisted by Copy Holders. There were six vacant posts of Copy Holders in
    the Government Press as on 16.4.1992. They were to be filled up by direct
    recruitment in accordance with the Orissa Government Press Industrial
    Employees .classification, Recruitment, Promotion, Conditions of Service and
    Appeal Rules. 1978 (hereinafter referred to as the "Rules"). Accordingly, the
    six vacant posts were notified on 16.4.1992. Out of the large number of
H   applicants 194 candidates were found eligible for the written test. The written
       GOVT. OF ORR ISA"· HARA PRASAD DAS [NANA YA TI, J.]                 341

test was held on 7.3.1993. Forty candidates were found suitable for the oral A
test. The names were enlisted in order of marks secured by them and also
category wise as four posts were to be filled up by general categroy candidates,
one post was to be filled up by a scheduled castes candidate and one was
to be filled up by a candidate belonging to scheduled tribes. Meanwhile, on
26.2.1993 the Government imposed a ban effective from 1.1.1993 to the effect B
that 2/3rd of the vacancies of the base level posts should not be filled up.
Out of the 40 candidates who were found eligible for the oral test 37 appeared
for the test and out of them 19 were selected for empanelment. On 13.7.1993
a selection list was prepared category wise. Nine candidates were empanelled
in the general category and five each in the categories of scheduled castes
and scheduled tribes. Respondent Nos. 1 to 3 were placed at serial Nos. 5 to C
7 in the list of general category candidates and respondent No. 4 was placed
at serial No.3 in the list of scheduled castes candidates. On 2.6.1993 the
vacant posts had increased to 9 and subsequently to 15 and, therefore, five
posts (!/3rd of 15) were filled up according to their roaster points. The
persons who were appointed were above respondent Nos. I to 4 in the
selection list. It appears that the Director thereafter moved the Government D
to accord permission through the high power commiitee to fill up the remaining
vacancies. The ban which was imposed by the Government was temporarily
lifted on 9.8.1994 and was re-imposed with effect from 1.4.1995. In view of this
later development the respondents made representations from time to time to
the Government to fill up the vacant posts on the basis of the said selection E
list. As the Government did not accede to their request they approached the
Tribunal for the reliefs mentioned above.

      The 0. A. was resisted by the Government on the ground that only six
posts were notified and, therefore, no more posts could be filled up on the
basis of the said selection list. It was also the case of the Government that      p
in view of the ban only five posts could have been filled up even if the
subsequent vacancies were taken i11to account. It was also its case that the
panel of selection candidates which was prepared on 13.7.1993 had remained
valid only till 12.7.1994 in view of Rule l l(v) of the Rules.

      The Tribunal rightly held that the only question which fell for its G
consideration was whether the selection list was still in force or had expired
on 12.7.1994. The Tribunal construed Rules 9, IO and 11 of the Rules and
observed as under :

       "Rule 11 is in Chapter-III of the Rules which deals with Classifications,
       Recruitment. Promotion and Confirmation. Rule 9(A) prov.ides that the       H
    342                     SUPREME COURT REPORTS [1997) SUPP. 5 S.C.R.

A          Director who is the appointing authority with respect to non-gazetted
           Industrial posts will make appointment to such posts. He will bP, aided
           and guided by a committee of officers as provided therein. Clause (B)
           provides for functions of the committee. It provided that the committee
           shall meet occasionally to discuss all matters relating to recruitment,
           etc., Sub-clause (iii) of the aforesaid clause provides the appointing
B          authority will nonnally act upon recommendation of the Committee in
           exigency of public service, the appointing authority may fill up posts
           in anticipation of the sanction of the appointing authority by recording
           proper reasons. Rule I 0 provides that the committee as well as
           appointing authority will be guided by the principles as laid down
c          therein in matters of recruitment, promotion etc. Clause (A) provides
           for the general principles. Sub-clause (iii) provides that the recruitment
           shall lie made trade wise Production wing is a branch and proof
           reading is a section of the said branch. Sub-clause (vii) provides that
           all posts in the first point of recruitment in all the trades will be filled
           up by way of direct recruitment and as referred to above the manner
D          of recruitment has been provided in Rule- I I. In this context the select
           list drawn will remain valid for one year. Thus, the list is not complete
           unless· it is appoved by the committee as provided in Rule 9(B)(iii)
           though appointing authority may fill up the posts in anticipation of
           the approval of the committee by recording proper reasons."
E        It, therefore, held that a list of selected candidates will become valid
  only after its approval by the Appointing and Promotion Committee. As there
  was nothing to show that the committee has approved the said list an
  inference could be drawn that the committee did not approve it. Therefore,
  13.7.1993 cannot be treated as the date from which the period of one year is
p to be counted. The Tribunal also held that under the Ru Jes there is no
  provision enabling the State Government to control filling up of vacancies
  and, therefore, period during which the said list remained suspended has to
  be excluded for the purpose of counting the period of one year. It also held
  that the provision made in Rule 11 (v) that the Selection list once drawn will
  remain valid for one year being a procedural provision is only directory and
G not mandatory. Taking this view it directed the Government, that for tlie sake
  of efficiency of public administration, it should fill up the vacant posts by
  appointing candidates from the selection list prepared on 13.7.1993. It also
  directed the Director of the Press to obtain permission of the Government and
  after getting such pennission to treat the appointees as probationers from the
H date of their appointment.
            GOVT. OF ORR ISA v. HARA PRASAD DAS [NANA YA Tl • .I.]               343
          Aggrieved by the said directions an~ the order passed by the Tribunal          A
    the State has approached this Court.

~          It was contended by the learned counsel for the appellant-State that the
    Tribunal in giving the aforesaid directions has acted beyond its jurisdiction
    and that the said directions are illegal inasmuch as they are contrary of Rule
     11 of the Rules. In our opinion the contention deserves to be accepted.
                                                                                         B
    Merely because there were some vacant posts of Copy Holders and the
    Director of the Press had recommended to the Government to fill up those
    posts it was not open to the Tribunal to direct the Government to fill up those
    posts even though it had good reasons not to do so. It should have been
    appreciated by the Tribunal that mere empanelment or inclusion of one's name         c
    in the selection list does not give him a right to be appointed. So also if the
    Government decides not to make further appointments for a valid reason, it
    cannot be said that it has acted arbitrarily by ndT appointing those whose
    names are included in the selection list. Whether to fill up post or not is a
    policy decision and unless .it is shown to be arbitrary it is not open to the
    Tribunal to interfere with such decision of the Government and direct it to          D
    make further appointments. The Tribunal in directing the Government to make
    further appointments on the efficiency ground of public administration went
    beyond its jurisdiction. While giving such a direction what the Tribunal failed
    to appreciate was that the decision of the Government not to make further
    appointments was not challenged as .arbitrary and it was challenged only on          E
    two grounds viz:(!) In between 9.8.1994 and 13.1.1995 there was no ban and,
    therefore, the Government could have appointed the respondent on the vacant
    posts and (2) The Government had made appointments in the same Press from
    out of a panel of Distributors, Binders, Type Suppliers, etc, which was prepared
    about 7 years back and, therefore, the Government had meted out
    discriminatory treatment to the respondents. The Tribunal did not find the           F
    action of the Government discriminatory possibly because as pointed out by
    the State in its counter filed before the Tribunal the selection list, prepared
    for Distributors, Binders, Type Suppliers, was of a different nature and character
    as it was prepared on the basis of a trade test which was confined to the in-
    service employees eligible for promotion to those posts under Rule 17 of the         G
    Rules: It may be recalled at this stage that the posts of Copy Holders in the
    Government Press are base level class-III posts and are required to be filled
    up by direct recruitment from open market under Rules IO and 11 of the Rules.

          We also find that the Tribunal has not correctly construed Rules 9, IO
    and 11 of the Rules. Rule 9 which refers to the committee is the Appointment         H
    344                     SUPREME COURT REPORTS 11997] SUPP. 5 S.C.R.

A and Promotion Committee which has to deal with promotions and recruitment
  of only in-service employees. Rules 9 and 10 of the Orissa Government
  Recruitment Rules, 1978 deal with recruitment of in-service employees and
  promotion of employees; and, in respect of the recruitment and promotion of         ·~


  such employees the Appointment and Promotion Committee has a role to play
B but in cases of direct recruitment from the open market the Appointment and
  Promotion Committee does not come to the picture at all and, therefore, the
  Tribunal was wrong in holding that the selection list prepared for direct
  recruitment from open market was required to be approved by the said
  Committee and it could become a valid selection list only after its approval
  by the said Committee. The Tribunal also failed to appreciate that if the
C selection list was not valid since it was not approved by the Committee then
  it could not have conferred any right in favour of those who were included
  in the said list and it would not be legal to make appointments of those
  included in such an invalili list.

         Rule l l(v) of the Rules does not speak of any approval by the
D Appointment and Promotion Committee. Moreover, it does not provide that
  it will remain valid for one year from the date of approval by such Committee.
  The language used in the Rule is very clear and admits of no ambiguity. It
  provides that selection list once drawn will remain valid for one year. What
  the Tribunal failed to appreciate was that the significance of word "drawn"
E used in the said Rules. Therefore, according to the Rules the period of one
  year starts running from the date on which a selection list is drawn. Admittedly,
  in this case the selection list was drawn up on 13.7.1993 it, therefore, expired
  on 12. 7.1994. The Government, therefore, was justified in not making any
  further appointment from the said list after l~.7.1994. The Tribunal in directing
  the Government to make further appoiatments from the said dead list has
F committed an illegality in exercise of its jurisdiction. Even if the said Rule is
  treated as directory and not mandatory, it was not for the Tribunal to direct
  the Government to treat it as 'live' and in force and to make further
  appointments from that list.

         As we find that the view taken by the Tribunal is wrong and the
G directions given by it are not legal the order passed by it is quashed and set
  aside. This appeal is allowed accordingly with no order as to costs.

     R.K.S.                                                       Appeal allowed.