Holding

The second proviso to Rule 4 and the proviso to Rule 17 are valid, not ultra‑vires, and do not violate Articles 14 or 16.

Summary

The Supreme Court examined the constitutional validity of the second proviso added to Rule 4 and the proviso to Rule 17 of the Civil Services Examination Rules, which restrict candidates allocated to IPS or Central Services Group A from re‑appearing in the next examination unless they resign. The petitioners argued that the proviso violated Articles 14 and 16, exceeded the power under Regulation 4(iii‑a) of the IAS (Appointment by Competitive Examination) Regulations, 1955, and discriminated between Group A and Group B services. The Court held that the proviso merely carved out a permissible exception, was within the executive’s power under Article 73, and bore a rational nexus to the objective of ensuring proper training and service efficiency. It was not ultra‑vires, arbitrary, or discriminatory, and therefore valid. The appeals were dismissed, confirming the Tribunal’s orders.

Issues considered

Whether the second proviso to Rule 4 of the Civil Services Examination Rules is ultra‑vires Regulation 4(iii‑a) of the IAS Regulations, 1955.
Whether the proviso to Rule 17 is constitutionally valid.
Whether the proviso violates Articles 14 and 16 of the Constitution by discriminating between Group A and Group B services or between SC/ST and other candidates.
Whether the restriction that a candidate must resign before re‑appearing is unreasonable or arbitrary.
Whether the executive had authority under Article 73(1)(a) and the All India Services Act, 1951 to introduce the proviso without parliamentary approval.

Legislation cited

All India Services Act, 1951s. Section 3
Constitution of Indias. Article 14, s. Article 16, s. Article 162, s. Article 309, s. Article 335, s. Article 51A, s. Article 73(1)(a)
IAS (Appointment by Competitive Examination) Regulations, 1955s. Regulation 4(iii‑a)

Subjects

Civil Services ExaminationRule 4Rule 8Rule 17Attempts restrictionResignation requirementClassification of servicesArticle 14Article 16Constitutional validityStatutory interpretationSC/ST candidates

Judgment

A MOHAN KUMAR SINGHANIA AND ORS. ETC. ETC.
v.
UNION OF INDIA AND ORS. ETC. ETC

SEPTEMBER 13, 1991

B [S. RATNAVEL PANDIAN, M. FATHIMA BEEVI
AND K. JA YACHANDRA REDDY, JJ. ]

Civil Services Examination Rules: Rules 4,8 and 17.

C Rule 4-Second proviso-Nature, scope and constitutional validity ~
of-Held proviso carves out an exception to Rule 4--lt does not travel
--oeyorrd Rule 4-f'roviso held not ultra vires to clause (iii-a) of Regulation
4 of I.A.S (Appointment by competitive Examination) Regulations,
~955--There is dynamic and rational nexus between the proviso and the'
object to be achieved-Proviso held applicable to candidates belonging to
D Scheduled Castes and Scheduled Tribes.

Rule 8-f'urpose of the Rule-Explained.

Rule 17--Proviso-Validity of- Proviso held valid.
E
Constitution of /11dia, 1950: Articles 14 and 16--Civil Services-Clas-
sification of services-Validity of-Held classification is not based on artifi-
cial i11eq1talities. b1tt is founded on substantial differences-Group 'A' and
'B' Services held distinct a11d separate-Classification of group 'A' and 'B'
F services held reasonable--Seco11d proviso to Rule 4 of Civil Services Ex-
amination R1tles held not ultra vires of Article 14 or Article 16.

Part W-A Article 51-A (ii-Fundamental d1tties-Civil Services--
Training Programme of selectees--R.ationale of-Training programme held
in consonance with the Article 51-A (j).

Interpretation of Statute : Statute-f'rinciples of constmcti01r-Legis-
lative i11tenti01r-Ascertainment of--5hould be ascertained by reading the
statute as a whole and in the backdrop of dominant purpose- Wizen the
language is clear and plain court. should constnte it in the ordinary sense .
H and gi~·e effect to it irrespective of consequences-<:onsideration of hardship
46
MOHAN KUMAR v. U. 0. I. 47

and inconvenience should be avoided. A

Section - Rule/proviso to-Nature and scope of-Rule of interpreta-
tion <of proViso-Wliat is-Proviso is expected to except or qualify the enact-
ing part.
Rule 4 of the Civil Services Examination Rules provide that every
B
candidate appearing at the examination, who is otherwise eligible, shall be
permitted three attempts at the examination. (The attempts are now
_..___ increased to four). Under Proviso to the said Rule the restriction on the
number of attempts is not applicable in the case of Scheduled Castes and
Scheduled Tribes candidates who are otherwise eligible. By a notification C
dated 13.12.1986 the Central Executive Authority inserted second proviso
to Rule 4. The said second proviso provided that a candidate who on the
basis of the results of the previous Civil Services Examination, had been
allocated to the l.P.S. or Central Services, Group 'A' but who expressed his
intention to appear in the next Civil Services Main Examination for D
competing for IAS, IFS, IPS or Central Services, Group 'A' and who was
permitted to abstain from the probationary training in order to so appear
shall be eligible to do so, subject to the provisions of Rule 17 and that the
said candidate when allocated to a service on the basis of the next Civil
Services (Main) Examination can either join that service or the service to
which he has already been allocated on the basis of the previous CSE and E
that if he fails to join either of the services, his allocation based on one or
both the examinations, as the case may be, will stand cancelled. Further,
notwithstanding anything contained in Rule 8, a candidate who accepts
I allocation to a service and is appointed to that service shall not be eligible
to appear again in the CSE unless he has first resigned from the service. In F
other words, a candidate failing within the ambit of this proviso can
appear in the CSE for all the permitted attempts subject to his age limit if
he intends to appear again in the CSE provided he first resigns from the
service which he accepts on allocation and to which he is appointed.

Rule 8 of the Civil Services Examination Rules precludes the G
ca~didate who have been appointed to the IAS, or IFS from sitting in the
ensuing examination while in service. The said rule provide that a
candidate who is appointed to the Indian Administrative Service (IAS) or
the Indian Foreign Service (IFS) on the basis of result of an earlier
txamination before the commencement or the ensuing examination and H
48 SUPREME COURT REPORTS (1991] SUPP. 1 S. C. R

A continues to be a member of that service will not be eligible to compete at
the sub sequent examination, even if he is disillusioned and wants to
switch over. Further, this. rule states that in case, a candidate has been
appointed to the IAS or IFS on the basis of the earlier examination and
after the subsequent preliminary examination, but before the main
B examination, the candidate, if continues to be a member of that service,
shall not be eligible to appear in the ensuing main examination
notwithstanding that the said candidate has qualified himself in· the
preliminary examination. Similarly if a candidate is appointed to the IAS
or IFS after the commencement of the Main examination but before the
announcement of the result and continues to be a member of that service,
C the said candidate shall not be considered for appointment to any
service/post on the basis of the result of this examination.

Rule 17 of the Civil Services Examination Rules provide that if a
candidate has been approved for appointment to IPS and expresses his
D intention to appear in the CSE (Main) for higher civil service, the services
for which he is eligible to compete are IAS, IFS and Central Services
Group 'A'. Similarly, a candidate who has been approved for appointment
to the Central Services Group 'A' and expresses his 'intention to appear in
the next CSE (Main) the services to which he will be eligible to compete are
IAS, IFS and JPS. The second proviso to Rule 17 provides that a candidate
E who is appointed to a Central Services Group 'B' on the result of an earlier
examination will. be. considered for appointment to IAS, IFS, JPS and
Central Services Group 'A'.

The eligibility of a candidate to appear in the Civil Services
Examination with regard to nationality, age and qualifications is given
F under Regulation 4 of the IAS (Appointment by Competitive Examination)
Regulations, 1955. Clause (iii-a) of the said Regulation provides that
unless covered by any of the exceptions that may from time to time be
notified by the Central Government in this behalf, every candidate
appearing for the examination after 1st January, 1979, who is otherwise
G eligible, shall be permitted three attempts at the examination, and the
appearance of a candidate at the examination wiil be deemed to be an
attempt at the examination irrespective of his disqualification or
cancellation as the case may be, of his candidature.

The legality and constitutionality of second proviso to Rule 4 and
H
MOHAN KUMAR v. U. 0. I. 49

Rule 17 was -challenged before the Central Administrative Tribunal. The A
Tribunal held that the second proviso to Rule 4 and Rule 17 were valid
and were not hit by Article 14 and 16 of the Constitution.

In appeals to this court, it was contended on behalf of the appellants
(1) that second proviso to Rule 4 ofthe CSE Rules was invalid because: (a)
it puts embargo restricting the candidates who are seeking to imptove B
their position vis-a-vis their career in government service; (b) it travels
+-.--
beyond the intent of main rule viz. Rule 4; (c) it is ultra-vires to clause
(iii-a) of regulation 4 of the I.A.S (Appointment by competitive
Examination) Regulation, 1955 in as much as the power to notify
exceptions do not include the power to make candidates ineligible who are C
otherwise eligible in terms of clause (i) to (iii) of Regulation 4; (d) it is bad
since the authorities have stepped out of the constitutional limits in
issuing the notification inserting the impugned proviso and that it bas not
been placed before the House of Parliament; (e) it is arbitrary and
irrational having no nexus with the object of recruitment to the post of
civil services; (I) it is violative of Articles 14 and 16 of the Constitution D
-..--
,because it discriminates between group 'A' and group '8' services i.e. it
excludes the candidates appointed to group 'A' services from competition
while no such embargo is placed restricting the candidates to Group '8'
services; (2) that the second proviso is not applicable to the candidates
belonging to SC ':_)r ST; (3) Proviso to Rule 17 of the Civil Services E
Examination is invalid since it places restriction on candidates who are
seeking to improve their position vis-a-vis their career.

Dismi~sing the appeals, this Court,

HELD: 1. If Rule 4 of Civil Services Examination Rules is examined F
h' juxtaposition of clause (iii-a) of Regulation 4, it is clear that both Rule 4
,. of CSE Rules and Clause (iii-a) of the Regulation 4 show that every eligible
candidate appearing at the Civil Services Examination should be
permitted three attempts at the examination which are now increased to
four under Rule 4 of the CSE Rules. The eligibility of a candidate to G
appear in the CSE with regard to nationality, age and educational
qualifications is given under clauses (i) to (iii) of Regulation 4 but the
Government by exercise of its executive power has imposed certain
restrictions under some specified cireumstances. A plain and grammatical
reading of clause (iii-a) of Regulation 4 shows that if the number of
H
50 SUPREME COURT REPORTS (1991)_ SUPP; 1 S. C.R.

A attempts are covered by any of the exceptions that may from time tO time
be notified by.the Central Govemment in this behalf, then the notification
will become enforceable and only in the absence of such notifieation, every
candidate normally can appear for all permitted attempts at the
·examination whether three or four. The impugned second proviso does not
restrict or put an embargo on the number of attempts in the normal
B course. But the restriction is only when the conditions enumerated in the
impugned proviso are satisfied. The restriction Imposed by the impugned
proviso cannot be said to be unjust, unreasonable or arbitrary or change
of any policy. Moreover, the spirit of the main rule is not in any way
disturbed. (80 B-F, 92 DJ
c
1.1 The restriction or embargo, as the one under consideration is not
only placed on the candidates who on the basis of the result of the previous
CSE had been allocated and appointed to IPS or Central Services Group
'A' but also on the candidates appointed in the higher echelon of civil
D service. There is a far more restrictive rule in existence, namely Ru!e 8 of
the CSE Rules which precludes the candidates who have been appointed to
the IAS or IFS, from' sitting in the ensuing examination while in service.
Further, this rule states that in case~ a candidate has been appointed to
the IAS or IFS on the basis of the earlier examination and after the
subsequent preliminary examination, but before Jfte Main examination,
E that candidate if continues to be a member of that senice, shali not be
eligible to appear in the ensuing main examination notwithstanding that
the said candidate bas qualified himself in the preliminary examination.
Similarly if a candidate is appointed to the IAS or IFS after the
commencement of the main examination but before_ the announcement of
F the result and continues to be a member of that service, the said candidate
shall not be considered for appointment to any service/post on the basis of •
the result of this examination. But there is no bar for a candidate who is
..
appointed to the IAS/IFS resigning from that service and sitting in the
examination for IPS or any Central Service Group 'A'. (86 B-F, 86 G·H]

G Under Rule 4 of CSE Rules notWithstanding anything contained in
Rule 8, a candidate who accepts allocation to a service and appointed to
that service shall not be eligible to appear again in the CSE unless he first
resigns from that service. In other words, a candidate who is allocated and
appointed to a service can sit in the ensuing examination provided he first
H resigns from that service. This restriction, is a reasonable one in order to
MOHAN KUMAR v. ·u. O. I. 51

achieve the desired result. Thus the second proviso to Rule 4 of the CSE A
Rules does not travel beyond the intent of the main rule putting any
unjustifiable embargo and the proviso is ·not ultra-vires Regulation
4(iii-a) of Regulations 1955 on the ground that it makes the candidates
ineligible who are otherwise eligible in terms of clauses (i) to (iii) of the
said Regulation and the proviso to Rule 17 is not invalid. [86H, 87 A·CJ
B
2. An enactment is never to be held invalid unless it be, beyond
question, plainly .and palpably in excess of legislative power or it is
ultra-vires or inconsistent with the statutory or constitutional provisions
or it does not conform to the statutory or constitutional requirements or is
made· arbitrarily with bad faith or oblique motives or opposed to public C
policy. (87 C·D]

2.1 While interpreting a statute the consideration of inconvenience
and hardships should be avoided aiid that when the language is clear and
explicit and the words used are phiin and unambiguous, the court is bound
to construe them in their ordinary sense with reference to other clauses to D
the Act or Rules as the case may be, so far as possible, to make a consistent
enactment of the whole statute or series of statutes/Rules/Regulations
relating to the subject matter. Added to this, in construing a statute, the
court has to ascer:tain the intention of the law making authority in the
backdrop of the dominant purpose and the underlying intendment of the E
said statute and that every statute is to be interpreted without any violence
to its language and applied as far as its explicit language ·admits
. consistent with the. established rule of interpretation. (83 F·G]
,/
Maxwell on the "Interpretation of statutes" 10th Edn. page 7; Craies F
on Statute Law, 5th Edn.; 6th Edn., page 89; referred to.

King Emperor v. Benoari Lal Shanna, AIR 1945 PC 48; Wardurto11 v.
Loveland, (1832] 2 D & CH. (H.L.) 480; Suffers v. Briggs, (1982] 1 A.C. 1.S; .
. Commissioner of Income Tax v. S. Teja Singh, [1959] 1 Suppl. SCR 394; M.
Pe11tiah and Ors. v. Muddala Veeramallappa and Ors., AIR 1961 SC 1107; G
Lt. Col. Pritlti Pal Singh Bedi etc. v. Union of India & Ors., [1983) 1 SCR
~ 393; A.R. Antulay. v. R.S. Nayak, [1984] 2 SCR 914; Maharashtra State
Board of Seco11dary and Higher .secondary Education and Anr: v. Paritosli
Blmpesh Kunnarsheth etc., [1985] 1 S.C.R. 29; Philips l11dia Ltd. v. Labour
Court, Madras a11d Ors., [1985) 3 SCC 103; Balasi11or Nagrik Cooperative
Bank Ltd. v. Babublwi Sltankerlal Pandya and Ors., [19871 1 SCC 608; H
52 SUPREME COURT REPORTS [1991] SUPP. 1 S. C. R

A Dr. Ajay Pradhan v. State of Madhya Pradesh and Ors., (1988) 4 SCC 514;
L!C v. Escons, AIR 1986 SC 1370, referred to.
2.2 A Proviso to a Section/Rule is expected to except or qualify some-
thing in the enacting part and presumed to be necessary. When the im-
pugned second proviso to Rule 4 of the CSE Rules is interpreted in its
grammatical meaning and cognate expressions and construed har-
B moniously with the substantive rule, it is pellucid that the said proviso
only carves out an exception to Rule 4 of the CSE Rules in given cir-
cumstances and under specified conditions and, therefore, the second
proviso cannot be read in isolation and interpreted literally. On the other
hand the substantive Rule 4 is be read in conjunction with the two
provisos appended thereto so as to have a correct interpretation. [83H, 85
C E-F)
2.3 :n the Proviso, in dispute, there are no positive words or indications
which would completely exclude the operation of the substantive rule the
spirit of which is reflected in Regulation 4 of the Regulations, 1955. The
restriction imp-osed by the second proviso is only under certain
D circumstances. Although the notification introducing the impugned proviso,
has to be strictly construed, the Court cannot overlook the very aim and +-
object of the proviso thereby either defeating its purpose or rendering it
redundant or inane or making it otzose. Judged from any angle, it is not
possible to hold that there is a violen.t ~reach of the provisions of the
E substantive Rule 4 of CSE Rules and Regulation 4 (iii-a) and it cannot. be
held that the impugned second proviso either subverts or destroys the
basic objectives of Rule 4 and that it is ultra-vires. [85F-H, 86 A-BJ

Maxwell on ''17ie Interpretation of statute", 11th edn. page 155; Kent's
Commentmy on American Law, 12th Edn. vol. 1 463, referred to.
F Att. Gen. v. Chelsea Waterworks Co., (1731) Fitzg. 195; Piper v. Har-
vey, f 1958] 1 Q.B. ,439; R. v. Leeds Pliso (Govemor), (1964] 2 Q.B. 625;
Ram Narain Sons Ltd. and Ors. v. Asstt. Commissioner of Sales Tax and
Ors., (1955) 2 SCR 483; Abdul lobar Butt & Anr. v. State of Jammu and
Kaslzmi1; ,[1957) SCR 51; Commi~sioner of Income Tax v. S. Teja Singh,
[1959) 1 Suppl. SCR 394; The Commissioner of Income Tax Mysore
G Travancore-Cochin and Coorg., Bangalore v. 77ze lndo Mercantile Bank Ltd.,
(1959) 2 Suppl. SCR 256; Madras & Southcm Mahratta Railway Co. v.
Bezwada Municipality, [1944) L.R. 71 I.A. 113, C01pn. of the City of Toronto
v. Attori1ey-General for Canada, [1946]A.C. 32; Mackinnon Mackenzie &
Co. Ltd. v.Audrey D' Cost and Anr., [1987] 2 SCC 469, referred to.
H
MOHAN KUMAR v. V. 0. I. 53

3. The argument that the second proviso is bad since the authorit•es A
have stepped out of the constitutional limits in issuing the notification
inserting the impugned proviso and that it has not been placed before the
Houses of the Parliament, has to be rejected because the proviso has been
introduced by the Central Executive Authority under the powers flowing
from Article 73(1) (a) of the Constitution, according to which the executive
power of the Union subject to the provisions of the Constitution shall
B
extend to the matters with respect to which Parliament has power to make
laws, but of course subject to the proviso made thereunder. Needless to
-+-- point out that whilst by virtue of Clause 1 (a) of Article 73, the executive
power of the Union which is co-extensive with the legislative power of
Parliament can make laws on matters enumerated in List I (Union List) c
and List II (Concurrent list) to the Seventh Schedule of the Constitution,
under Article 162 of the Constitution, the executive power of the State
Executive which is coextensive with that of the State legislature can make
laws in respect of matters enumerated in List III (State List) and also in
respect of matters enumerated in List II (Concurrent List), subject to the
D
provisions of the Constitution. [77 D-G]
t-
3.1 In the instant case, the Central executive authority has not either
expressly or impliedly changed the policy of the Government by exercising
unreasonable and arbitrary discretion and the present Rule 4 with its
newly added second proviso does not repeal the essential features of the E
pre-existing Rule 4 but only dmits the ambit of the operation of the price 4
under a given situation. Hence, there is no substance in the contention that
the second proviso is bad and that the central executive authority has
transgressed the constitutional limits. [77 H, 78 A]
F
4. Article 14 declares that the State shall not deny to any person
equality before the law or the equal protection of the laws within the
territory of India. The cherished principle underlying the above Article is
that there should be no discrimination between one person and another if
as regards the subject matter of the legislation, their position is the same.
(103 H, 104 A] G

4.1 Differential treatment does· not per se constitute violation of
Article 14 and it denies equal protection only when there is no rational or
reasonable basis for the differentiation. Thus Article 14 condemns
discrimination and forbids class legislation but permits classification H
54 SUPREME COURT REPORTS. [1991] SUPP. i S.C.R

A founded on intelligible differentia having a rational relationship with .~
the object sought to be achieved by the Act/Rule/Regulation in
question. The Government is legitimately empowered to frame rules of
classification for securing the requisite standard of efficiency in
. services and the classification need not scientifically be perfect or
B logically complete. Every classification is likely in some degree to
produce some inequality. (104 B-DJ

R.K. Dalmia v. Justice Tendolkar, (19591 SCR 279; /31tdhan Choudhry
v. State of Bihar, (19551 1 SCR 1045; Kumari Chitra Ghosh and Anr. v.
Union of India and Ors., [19691 2 SCC 228; State of Jammu & Kashmir v.
Triloki Nath Khosa & Ors., [1974] 1 SCR 771; A.S. Sangwan v. Union of
C India, [19801 Suppl. SCC 559; Akhil Bhartiya Soshit Karamchari Sangh
(Railway) v. Union of India & Ors., [1981] 1 SCC 246; Deepak Sibal v.
Punjab U11ive1:5ity, [1989} 2 SCC 145; Chiranjit Lal v. Union of India [1950]
1 SCR 869; Ameeroonissa v. Mahboob, [1953) SCR 405; Gopi Chand v.
Delhi Administration, AIR 1959 SC 609; E.P. Royappe v. State of Tamil
D Nadu, [19741 2 SCR 348; Maneka Gandhi v. Union of India [1978] I SCC
248; Romana v. Intemational Airport Authority of India, AIR (19791 SC --+
1628; Union of India v. Tulsiram Patel, [19851 3 SCC 398; Swadeshi Cotto11
Mills v. Union of /ndia,(1981] 2 SCR 533; Central I11la11d Water Transport
Corporatio11 v. Brojo Nath, AIR 1986 SC 1571; Devadasan v. Union of India,
[19641 4 SCR 680; Birendra Kumar Nigam and Ors. v~ U11io11 of India, W.P.
E Nos. 220-222 of 1963 decided on 13.3.64, referred to
4.2 The selections for IAS, IFS, and JPS Group 'A' services and
group '8' service a:re made by a combined competitive examination and ~
viva voce test. There cannot be a~y dispute that each service is a distinct
-a~d separate cadre, having its separate field of operation, with different
F status, prospects, pay scales, the nature of duties, the responsibilities to
the post and conditions of service etc. Each of the services is founded on
intelligible differentia which on rational grounds distinguishes persons
grouped together from those left out and that the differences are real and
substantial having a rational and reasonable nexus to the objects sought
G to be achieved. Therefore, once a candidate is selected and appointed to a "<'
particular cadre he cannot be allowed tO say that he is at par with the
others on the ground that all of them appeared and were selected by a
combined competitive examination and vh>a voce test and· that the
qualifications prescribed are comparabte. The classification of ·services is
H not based on artificial inequalities but is hedged within the salient features
MOHAN KUMAR v. U. 0. I. 55

and truly founded on substantial dltrerences. Judged from this point of A
. view, it is not possible to hold that the classification rests on an unreal and
unreasonable basis and that it is arbitrary or absurd. [103C, 106C, 103 J).
E]

4.3 It cannot also be disputed that the candidates allocated to
Group' A' services are more meritorious compared to candidates allocated B
to Group' B' services. Consequently, those allocated to Group' B' services
get lower position compared to those alloeated to Group A! services. 'llle
pay scales in Group 'B' services are comparatively less than those meant
for IAS, IFS and IPS and Central Services Group 'A'. There is a clear cut
separation on the basis of ranking and merit and, therefore, it cannot be C
said by any stretch of imagination that both Group 'A' and Group 'B'
services fall under one and the same category but on the other these
services are two distinct and separate categories falling under two
different classifications. Therefore, there is no discrimination whatsoever
involved on account of the introduction of the second proviso in question D
and the said proviso is not ultra-vires of Article 14 or Article 16 of the
Constitution of India. (97 B-C, 106G]

. s; .. In the normal course, a candidate belonging to SC/ST category
· can enjoy all the benefits under the rules and regulations. But the
restriction imposed under the second .proviso is only for. a specified E
category of candidates by treating all such candidates at par and without
making any exception to the candidates belonging to SC/ST. The
submission that the second proviso is an independent one does not merit
consideration because the second proviso to Rule 4 begins with the words
"provided fiuther •••••".which expression would mean that a strict compliance F
.. of the second proviso ls an additional requirement to that of the
substantive rule 4 and the first proviso. The expression "provided further"
spells out that the first proviso cannot be read in isolation or independent
of the second proviso but it must be read in conjunction with the second
proviso. [89 C-E]
G
S.1 Once the candidates belonging to SC or ST get through one
common examination and interview test and are allocated and appointed
to a service based on their ranks and performance, and brought under the
one and the same stream of category, then they too have to be treated
among. all other· regularly and lawfully selected candidates and there H
56 SUPREME COURT REPORTS (1991] SUPP. 1 S. C. R

A cannot be any preferential treatment at that stage on the ground that they
belong to SC or ST, though they may be entitled for all other statutory
benefits· such as to the relaxation of age, the reservation etc. The
unrestricted number of attempts, subject to the upper age limit, is
available to the SC/ST candidates in the normal course but that is
B subject to t.he second proviso because when once they are allocated and
appointed along with other candidates to a category/post, they are
treated alike. Therefore, there is no merit in the submission that the
second proviso is not applicable to the candidates belonging to SC or
ST. (89 E-G,91H, 92 A]

C 5.2 There may be some hard cases, but the hard cases cannot be
allowed to make bad law. As long as the second proviso does not suffer
f~om any vice, it has to be construed , uniformly giving effect to all those
falling under one category in the absence of any specific provision
exempting any particular class or classes of candidates from the operation
D of the impugned proviso and no one can steal march over others falling
under the same category. Hence the right of candidates belonging to SC
and ST competing further to improve their career opportunities is limited +
to the extent permissible under the second proviso to Rule 4 read with
Rule 17 of the C.S.E. Rules. (91 F-G]

E C.A. Raje11dra11 v. Union of India & Ors., [1968] 1 SCR 721; State of
Kera/a v. N.N. 77wmas, [1976] 2 SCC 310; Akhil Bhartiya Soshit Karam-
cliari Sangh/Railway) v. Union of India & Ors., (1981) 1 SCC 246; M.R.
Ba/aji v. State of Mysore, (1963) Suppl. 1 SCR 439; Triloki Nath v. State of
J&K (1969] 1 SCR 103; T. Devadasan v. Union of India, (1964] 4 SCR 680;
Comptroller and Auditor-Genera/ of India v. K.S. Jaga1111athan, (1986] 2
F SCC 679; Janki Prasad v. State of J&K, AIR 1973 SC 930; General Manager
v. Rangachari, AIR (1962] SC. 36, referred to.

6. There is no denying the fact that the civil service being the top
most service in the country has got to be kept at height, distinct from other
services since these top echelons have to govern a wide variety of
G departments. Therefore, the person joining this higher service should have
breadth of interest and ability to acquire new knowledge and skill since X
those joining the service have to be engaged in multiple and multifarious
activities. In order to achieve this object, the selectees of this higher civil
services have to undergo training in the National Academy/Training
H institutes wherein they have to undergo careful programme of specialized
MOHAN KUMAR v. U. 0. I. 57

training as probationers. The various schemes of training are based on the A
. conviction that splendid active experience is the real training and the
selectees are to be trained in the academies in all kinds of work they have
to handle afterwards with a band of senior chosen officers. [92 H, 93 A-BJ

6.1 The rationale underlying the course at the training centres ·is
that the officers of civil services must acquire an understanding of the B
constitutional, social, economic and administrative framework within
which they have to function and also must have a complete sense of
.J_ _ involvement in the training and thereafter in the service to which he is
appointed. The initial training is in the nature of providing young
probationers an opportunity to counter-act their weak points and at the C
same time develop their social abilities and as such the aspect of training
is the most important of all. (93 C-D]

Hermer Fines, the Theory and Practice of Modem Government;
United Nations Handbook on Civil Service Laws and Practice, referred to.
D
Lila Dhar v. State of Rajastltan & Ors., (1981) 4 SCC 159, referred to.

6.2 The effort taken by the Government in giving utmost
importance to the training programme of the selectees so that this higher
civil service being the top most service of the country is not wasted and
does not become fruitless during the training period is in consonance with
E
the provisions of Article 51-A (j) orthe Constit~tion. (77-A]

6.3 There is a dynamic and rational nexus between the impugned
second proviso and the object to be achieved. [106-F]
F
CIVIL APPELLATE JURISDICTION : Civil Appeal Nos.
5439-52of1990 etc. etc.

From the Judgments and Orders dated 20.8.1990/4.10.1990/
15.10.1990· of the Central Administrative Tribunal, Principal Bench, Delhi
in O.A Nos. 1023, 309, 1705, 1058 & 1054 of 1989 and 1072, 1074, 1162, G
1161, 1122, 1064, 536, 1230of1990 and M.P. No. 1354of1990 in O.A No.
• 309 of 1989.

P.P. Rao, AK. Behere, AK. Sahu, C.N. Sreekumar, Gopal Sub-
ramanium, Madhan Panikhar, Mrs. Virola Sinha, Gopal Singh, Salman
Khurshid, Mrs. C.M. Chopra, AM. Khanwilkar and Mrs. V .D. Khanna for H
58 SUPREME COURT REPORTS (1991] SUPP. 1 S. C.R.

A the Appellants.
Kapil Siba~ Additional Solicitor General~ Ms. Karnini Jaiswal ·and
C.V.S. Rao for the Respondents.

The Judgment of the Court was delivered by
B S. RATNAVEL PANDIAN, J. The above batch of Civil Appeals in
which common questions of law arise, is preferred by special leave under
Article 136 of the Constitution of India against the judgments dated
20.8.1990, 4.10.1990 and 5.10.1990 of the Central Administrative Tribun~
+-
Principal Bench, New Delhi (hereinafter referred to asTribunal) rendered
C in various affiliated groupc; of original applications (O.As) upholding the
validity of the second proviso to Rule 4 of the Civil Services Examination
Rules (hereinafter referred to as 'C.S.E. Rules') introduced by Notification
No. 13016/4/86-AIS(l) dated 13.12.1986 (Published in the Gazette of India
Extraordinary, Part I Section 1). Be it noted that similar notification has
been/is being issued each year for the general· information of the can-
didates setting down the terms and conditions, eligibility etc~ to sit for the
Civil Service Examination of tlie concerned year. ·

While a substantial. number. of O.As filed before the Tribunal .at
Delhi were pending, a similar number of analogous O.As filed before the · ·
Benches of Administrative Tribunals at Patna, Allahabad, Chandigarh,
E Jabalpur, Hyderabad, Jodhpur and Eranakulam were transferred to the
Tribunal at Delhi since common questions of law arose for determination
in all the OAs. .

·· . The Tribunal rendered its main judgnlent in 0.A.No. 206/89 Alok -·-"'-'
Kµmar v.. Union of India & Ors. and 61 other 0.As in which the facts
F appear to be common. The otherjudgments were passed on the basis of
-the conclusiOns arrived in O.A. No. 206/89 and the connected batch of
OAs. Since the Tribunal has set out ·only the facts in the case of Alok
Kumar (O.A. No. 206/89) treating it as a main application and illustrative
of the questions raised, we would like to briefly indicate the facts. of Alok
Kumar's case so that the impelling circumstances which led to the filing of
· G these appeals and the cominon questions of law involved may be under-
. stood .in the proper: perspective in the light of the judgnient of ~e Tribunal. - ~

. In this oontext>if may be noted that though no appeal has been fded
against the Order in O.A.No. 206/89, we are giveµ to understand that Alok
· Kumar who agitated bis similar claim along with two others who were all
H allocated to Group 'A' Services (tR.P.S.) in O.A.No. 1071/1990 has
: ... ; -~~
MOHAN KUMAR v. U. 0. I. (PANDIAN, J.) 59

preferred Civil Appeal No. 5469 of 1990 against the judgment in the said A
OA. No. 1071of1990.

Shri Alok Kumar filed his application in December 1986 to sit for the
preliminary examination in 1987. The preliminary examination was held by
the Union Public Service Commission ('UPSC for short') in June 1987 and
the result was declared in July 1987. The C.S.E. (Main) Examination was B
held by the UPSC in November 1987. The interviews took place in. April
1988 and the final results were declared by the UPSC in June, 1988. The
applicant, Aiok Kumar was selected for appointment to Central Service
Group 'A' post. A communication to this effect was sent to him on 30.8.88
in which Alok Kumar's attention was drawn to Rule 4 of the C.S.E. Rules
1987 pointing out that if he intended to a.ppear in the Civil Services (Main) C
Examination in 1988 he would not be allowed to join the Probationary
Training along with the candidates of 1987 group but would only be al-
lowed to join the Probationary Training along with the candidates who
would be appointed on the basis of the CSE 1988. The said letter also
indicated that in the matter of seniority, he would be placed below all the
candidates who would join training without postponement. Therefore, he D
was. required to furnish the information about his appearing in the CSE
(Main) 1988 to the c.oncerned cadre controlling authorities. He was further
informed that only on receipt of the above information, the concerned
cadre controlling authority would permit him to abstrain from the Proba~
· tionary Training. The Joint Director, Estt. G (R), Ministry of Railways
(Railway Board) informed Alok Kumar about his selection for appoint- E
ment to the Indian Railway Personnel Service and that the training would
commence from 6.3.1989 and that he should report for training at the·
-,,/ Railway Staff College, Vadodara. Further he was informed that ·he once
joined the Probationary Training along \\ith 1987 batch , he would not be
eligible for consideration of appointment on the basis of subsequent CSE
conducted by the UPSC. .F

The case of Alok Kumar was that he. did not intend to appear in
the next CSE and he had already appeared for the CSE 1988 even before
he received the offer of appointment dated 2.1.1989. He was then in-
timated that if _he had already joined the Probationary Training along with
1987 bateh, he would .not be eligible for consideration for appointment on G
the basis of subsequent CSE conducted by the UPSC. Besides the main
reliefs, Alok Kumar had prayed .for an interim order to join and complete
the current Probationary Training without being compelled to sign the
wtJcrf\~king sought to be obtained from him subject to final orders in the
OA. The Division Bench of the Tribunal issued an interim order, as
prayed for by Alok Kumar, allowing him to join the requisite training for H
60 SUPREME COURT REPORTS (1991] SUPP. 1 S. C. R

A the service to which he had been allocated and allowed him to appear in
the interview as and when he was called by the UPSC on the basis of 1988 '
~-·

Examination.

The respondents filed their reply explaining the circumstances under
which the second proviso was introduced to rule 4 of CSE Rules, its scope
B and ambit and refuted all the intentions raised by Alok Kumar challenging
the legality and constitutionality of the impugned proviso.

The Tribunal by its detailed and considered judgment has rendered
its conclusions thus: ~

"Having considered the matter in the above bunch of cases, we
c have come to the following conclusions: -

1. The 2nd proviso to Rule 4 of the Civil Services Examination
Rules is valid.

2. The provisions of Rule 17 of the above Rules are also valid.
D
3. The above provisions are not hit by the provisions of Arts.
14 and 16 of the Constitution of India.

4. The restrictions imposed by the 2nd proviso to Rule 4 of the
Civil Services Examination Rules are not bad in law.
E
5. (i) The letter issued by the Ministry of Personnel, Public
Grievances and Pensions dated 30th August, 1988 and in par-
ticular, paragraph 3 thereof and paragraph 4 of the letter dated
2.1.1989, issued by the Cadre Controlling Authority, Ministry
of Railways (Railway Board) are held to be bad in law and
F unenforceable. Similar letters issued on different dates by
other Cadre controlling Authorities are also unenforceable.
(ii) A candidate who has been allocated to the I.P.S. or to a
Central Services, Group 'A' may be allowed to sit at the next
1
Civil Services Examination, provided he is within the permis-
sible age limit, without having to resign from the service to
G which he has been allocated, nor would he lose his original
seniority in the service to which he is allocated if he is unable
to take training with his own Batch.

6. Those applicants who have been allcoated to the I.P.S. or
any Central Services, Group 'A', can have one rnore attempt in
H the subsequent Civil Services Examination, for the Services in-
MOHAN KUMAR v. U. 0. I. [PANDIAN, J.] 61
dicated in rule 17 of the C.S.E. Rules. The Cadre Controlling A
Authorities can grant one opportunity to such candidates.
7. All those candidates who have been allocated to any of the
Central Services, Group 'A', or I.P.S. and who have appeared
in Civil Services Main Examination of a subsequent year under
the interim orders of the Tribunal for the Civil Services Ex-
.aminations 1988 or 1989 and have succeeded, are to be given B
benefit of their success subject to the provisions of Rule 17 of
the C.S.E. Rules. But this examination will not be available for
any subsequent Civil Services Examination.
In the result, therefore, the Applications succeed only in
part-viz., quashing of the 3rd paragraph of the letter dated C
30.8.1988 and 4th paragraph of the letter dated 2nd January,
1989 and similar paragraphs in the letters issued to the ap-
plicants by other cadre controlling authorities. Further, a
direction is given to the respondents that all those candidates
who have been allocated to any of the Central Services, Group
'A' or l.P.S. and who have appeared in Civil Services Main D
Examination, 1988 or 1989 under the interim orders of the
Tribunal and are within the permissible age limit and have
succeeded are to be given benefit of their success subject to the
provisions of Rule 17 of the C.S.E. Rules. The O.As are dis- -
missed on all other counts."
On the basis of the above directions given in paragraphs 5(ii), 6 and E
7, we gave some interim directions on 7.12.1990 which are annexed to this
judgment as Annexure 'A'.

Several learned counsel appeared for the respective parties and ad-
vanced their submissions interpreting the rules and cited a plethora of
decisions in support of their respective cases. Whilst Mr. P .P. Rao, senior F
counsel assisted by Mr. C.N. Sreekumar and others, Mr. Gopal Sub-
ramaniam, Mrs. C.M. Chopra, Mr. Gopal Singh and Mr. A.M. Khanwilkar
appeared for the appellants in the various batches of cases, th<{ learned
Additional Solicitor General, Mr. Kapil Sibal assisted by Ms Kamini Jais-
wal and Mr. CVS Rao appeared on behalf of the respondents/Union of
India & Others.
G
The common substantial questions of law, propounded and posed
for consideration in all the above appeals are:
(1) Whether the second proviso to Rule 4 of the CSE Rules
1986 is invalid for the reason that it puts an embargo restricting
the candidates who are seeking to improve their position vis-a- H
62 SUPREME COURT REPORTS [1991] SUPP. 1 S. C.R.

vis their career in Government service?
A
(2) Whether the· second proviso under .challenge travels
beyond the intent of the main rule namely, Rule 4 of the CSE
Rules? ·

(3) Whether the proviso to Rule 17 of the CSE Rules is bvalid
B on the ground that it places restriction on candidates who are
seeking to improve their position vis-a-vis their career?

(4) Whether the said second proviso to Rule 4 of CSE Rules is
ultra-vires to clause (iii-a) of Regulation 4 of the. Indian Ad-
ministrative Service (Appointmen! by Competiti~c Examina-
c tion) Regulations, 1955 (for short 'Regulations') inasmuch as
the power to notify exceptions does not include the power to
make candidates ineligible.who are otherwise eligible in terms
of clauses (i), (ii) and (iii) of Regulation 4?

(5) ·Whether the said proviso which is an administrative in-
D struction introduced by the impugned Notification is arbitrary
and irrational having no nexlis with the object of recruitment to . .
the post of Civil Services? ·

(6) Whether the impugned second proviso is illegal since it
makes a discrimination between the successful candidates of
E Central Service Group 'A' and Group 'B' as no embargo is
· placed restricting the candidates of Gtoup''B' service, as in the
case of Group 'A' service and whether the reasons given by the
Government to justify the introduction of the impugned
proviso have any rational nexus to the object of the scheme of
F recruitment to the All India Services or/and whether such. ·
reasons are arbitrary, unfair and unjust?·

(7) Whether the restriction imposed on the number of at-
tempts in pursuance of the impugned proviso, in the case of
Scheduled Castes/Scheduled Tribes candidates who were since ·
G then availing any number of attempts subject to the eligibility
ofage limit is unjustifiable and illegal and amounts to depriva-
tion of the right conferred on them by the Constitution of
India?

(8) Whether the reasons given by the Government to justify
H the introduction of the impugned proviso have any rational
MOHAN KUMAR v. U. 0: I. {PANDIAN, J. J 63

. nexus to the object. of the scheme ··of recruitment to the.· All A
India Services or/and whether such reasons are arbitrary, un-
- fair and unjust? .

(9) Whether the impugned second proviso is s1,1ffering from
the vice of hostile discrimination and as such violative of Ar-
ticles 14 and 16 of the Constitution of India. B
Recrui[11Jent to All India and Central Services - Brief History and Present
Position:
Before entering into an extensive investigation and fullfledged dis-
cu~sion on the questions formulated above, we feel that in order to have C
a i;nOre comprehensive study of the development of the civil service in
India a brief history of the past system of recruitment to All· India and
Central ·SerVices based on the 'then ·existing mode of selection and the
development of the present scheme of examination and method of recruit-
ment till the introduction of the impugned proviso to rule 4 of CSE Rules,
is necessary so .as to have the background of the entire system and to
assimilate the compelling necessity warranting the introduction of the new D
proviso. ·

The Indian Civil Service (ICS) Examination was held only in
England by the British Civil Service Commission till 1922 and thereafter
in India. Four years later, the newly formed Public Service Commission
(India) began to conduct the ICS Examination on behalf of British Civil E
Service Commission and this position continued until 1937 when the Public
Service Commission (India) was replaced by the Federal Public Service
·...,/ Commission under the Government of India Act, 1935. Thereafter, the
Indian Civil Service Examination in India was held by the Federal Public
Service Commission independent of the British Civil Service Commission.
After 1943, recruitments to the Indian Civil Service, Indian Police besides F
the Indian Audit and Accounts Service and allied services were suspended.
In 1947 · a combined examination was introduced for recruitment to the
Indian Administrative Service, Indian Police Service and non-technical
Central Services. Between the years 1947-50 a combined competitive ex-
amination was held once a year for recruitment for IAS, IFS, JPS and
non-technical Central Services. After independence, new services known G
as the Indian Administrative Services (IAS) and· Indian Police Service
(IPS) were established as All India Services. In order to meet the country's
requirement for diplomatic personnel another service known as Indian
Foreign Service (IFS) was established. The Service Commission was
redesignated as the Union Public Service Commission in 1950 when the
Constitution came into force. H
64 SUPREME COURT REPORTS (1991] SUPP. 1 S. C. R

A •While it was so, the U.P.S.C. appointed a Committee in February
1974 under the chairmanship of Dr. D.S. Kothari to make recommenda-
tions for further improvemem in the system having regard to the needs of
various services and accordingly the said Committee undertook a pains~ak
ing research and carried on a comprehensive and analytical study and
thorough examination of the various aspects of the problems connected
B . with the reform in the existing examination and selection by g(Jing in great
depth and detail and submitted its report on March 20, 1976 after taking
into consideration of the fact of frequent receipt of complaints from the
training centres and the data collected and made its recommendations in
evaluating the scheme of civil services by tracing its birth and breadth of
the upper tier of this administrative machinery covering its entire field.
c
On the recommendations of the Kothari Committee the current
scheme of Civil Services Examination was introduced from 1979, as per
which the Civil Services Examination conducted by the U.P.S.C. has been
a'Ild is catering,10 the All India Services viz. IAS, IFS and JPS; and 16
D Central Group 'A' Services and 8 Group 'B' Services.
In order to be eligible to compete at the examination, a candidate
must satisfy the conditions of eligibility, namely, nationality, age and requi-
site qualifications as envisaged under Regulation 4 of the I.A.S. (Appoint-
ment by Competitive Examination) Regulation 1955. In addition to the
E above qualifications, one more condition of eligibility is added under
Regulation 4 (iii-a) substituted vide Department of Personnel and A.R.
notification No. 11028/1/78-AIS (1)-A dated 30.12.1978, according to
which unless covered by any of the exceptions that may from time to time
be notified by the Central Government in this behalf, every candidate ap-
pearing for the examination after 1st January, 1979, who is otherwise
F eligible shall be permitted three attempts at the examination. In other
words, the number of attemptr-, a candidate can appear, is also made as
one of the conditions of eligibility to sit for the IAS competitive examina-
tion. It may be pointed out in this connection that by a subsequent notifica-
tion dated 23.11.1981, Regulation 4 (iii-a) was further clarified that the
G appearance of a candidate at the examination will be deem~d to be an
attempt at the examinacion irrespective of his disqualification or cancella-
tion as the case may be of his candidature. An explanation is added to this,
explaining "an attempt at a preliminary examination shall be deemed to be
H an attempt at the examination, within the meaning of this rule".
MOHAN KUMAR v. U. 0. I. (PANDIAN, J.] 65

Civil Services Examination - Present Scheme A
From the CSE held in 1979, each eligible candidate is permitted
three attempts at the examination. This restriction on the number of at-
tempts does not apply to the candidates belonging to SC/ST and other
specified categories as may be notified by the Central Government from
time to time under Rule 6(b) of the CSE Rules but subject to the relaxation B
in the upper age limit of those candidates. The scheme of selection of
candidates for the Civil Services consists of three sequential stages, ·each
making a significant and specific contribution to the total process. They
are:

( 1) Preliminary examination serving as a screening test; C
(2) The main examination which intended to assess the overall
intellectual traits ·and depth of understanding of candidates;
and

(3) The interview (viva voce test).
D
Hermer Finer in his text book under the caption The Tiieory and
'-\; Practice of Modem Govemnie11t stales:
"The problem of selection for character is still the potts
asinontm of recruitment to the public services everywhere. The
British Civil Service experiments with the interview." E
The purpose of viva-voce test for the ICS Examination in 1935 could
be best understood from the following extract of the Civil Service
Commission's pamphlet:
"Viva-voce - the examination will be in matters of general
interest; it is intended to test the candidate's alertness, intel- F
ligence and intellectual outlook. The candidate will be ac-
corded an opportunity of furnishing the record of his life and
education."
It is apposite, in this connection, to have reference to an excerpt
from the United Nations Handbook on Civil Service Laws and Practice, G
which reads thus:
".... the written papers permit an assessment of culture and
intellectual competence. This interview permits an assessment
of qualities of character which written papers ignore; it al-
. tempts to assess the man himself and not his intellectual
abilities." H
66 SUPREME COURT REPORTS (1991) SUPP. 1 S. C. R

A This Court in Lila Dhar v. State of Rajasthan and Others, [1981) 4,
sec 159 while expressing its view about the importance and significance of
the two tests, namely, the written and interview has observed thus:

"The written examination assess the man's intellect and the
interview test the man himself and 'the twain shall meet' for a
B proper selection".

AGEL/MIT

Coming to the ·3ligibility of age, it was initially fixed at 21 to 26 years
and then reduced in 1948 to 21 to 25 years. In the following year, the age
C range was further reduced to 21 to 24 years except for the Indian Railway
Traffic Service for which it continued to be 21 to 25 years upto 1955. The
lower age limit for IPS was reduced to 20 years in the year 1951 keeping the
upper age limit at 24 years. The upper age limit for the Indian Railway
Traffic Service was reduced to 24 in i955. The age limits for all other
services remained at 21 to 24 years. Therea~er, though the Public Services
D (Qualification for Recruitment) Committee appointed by the Government
of India in 1955 recommended the reduction of the age range from 21-24 to
21-23 years, the Government did not agree with that recommendation and
kept the prescribed age limit of 20/21 to: 24 years unaltered. The Kothari
Committee recommended that a candidate should not be less than 21 years
E of age and not more. than 26 years on the 1st July of the year in which the
candidate appears at the examination, with the usual relaxation of upper
age limit for SC/ST and other categories as may be notified by the Govern-
ment from time to time. However, the Committee did not reeommend
lower age limit of 20 years for the IPS, as was permitted. The Government
while not completely agreeing with Kothari's Committee recommendations
F in regard to some aspects inclusive of age limit while implementing the
recommendations, increased upper age limit .to 28 years keeping the lower
age limit of 21 years unaltered. Thus, the age limit of 21-28 years was in
operation. from 1979 to 1987. Then the Government re-considered this
issue and reduced the upper age limit to 26 years. During the course of the
hearing of these appeals, it has been stated at the bar that the Government
G of India in February/March 1990 amended the CSE Rules and increased
the upper age limit from 26 years,to 28 and then to 31 years for the CSE to
be conducted -by the UPSC. Now by notification No. 13018/10/90-AIS (I)
dated 5th January 1991, issued by the Ministry of Personae~ Public
Grievances and Pensions (Deptt. of Personnel and Training) published in
the Gazette of India in Part I, Sec. I the age eligibility for appearing at the
H examination in 1991 is that the candidate must have attained the age of 21
MOHANKUMAR v. U. 0. I. [PANDIAN, J.) 67

_.,_._ years and must not have attained 28 years on 1st August 1991 i.e. he A
must have been born not earlier than 2nd August, 1963 and not later
than 1st August, 1970 but subject to the relaxation in the upper age limit
to SC/ST and other categories specified under Rule 6(b) of the CSE
Rules.

Number of Pennissible Attempts B
Regarding the number of attempts, a candidate could make, the
- ._;._ Public Services (Qualifications for Recruitment) Committee in 1955
r~~mmended that in order to identify the best candidates the number of
attempts at the combined examination should be limited to two by reducing
the age limit to 21-23 years. The Government accepted the recommenda- C
tion regarding restriction of the number of attempts to two instead of three,
but provided that these were to be counted separately for the following
categories of services -

Category I - IAS and IFS
D
Category II - JPS and Police Service Class II of the Union Territories

Category III - Central Services Class I and Class II
' .. ), t.

In view of the acceptance of the above recommendations, from 1%1
onwards, the IAS etc. examination became in effect three examinations. E
Since the restriction on the number of chances were related not to the
examination as a whole, but individual categories, theoretically a candidate
'y could take as many· chances as the age limit would permit. Thereafter in

1972 the age limit was raised to 26 years and the reduction of attempts
from three to two was not implemented following the recommendations of F
the Administrative Reforms Commission. In fact since 1973, candidates
were permitted to make three attempts for each of the three categories of
services within the permissible age range. It may be stated in this connec-
tion that the Kothari Committee had recommended only two attempts for
the Civil Services Examination for not only the general candidates but also
1-- candidates belonging to the SC/ST but the Government did not agree with G
these recommendations and permitted three attempts to general can-
didates and did not impose any restriction on the number of attempts on
the candidates belonging to SC/ST but of course, subject to their upper age
\;nlit It wlll be worthwliile, In this context, to refer to the Report of the
Committee to review the Scheme of Civil Services Examination under the H
68 SUPREME COURT REPORTS [1991) SUPP. 1 S. C. R

A chairmanship of Dr. Satish Chandra, appointed by the UPSC on 12.9.1988 +-
to review and evaluate the scheme of selection to the higher civil services
introduced from 1979 in pursuance of the recommendations of the Com-
mittee on Recruitment Policy and Selection under the Chairmanship of Dr.
D.S. Kothari and to make recommendations for further improvement of
B the system and the relevant excerpt of tile report touching on this aspect is
as follows:-

"We, therefore, recommend that for the general candidates the +-
permii::::ible number of attempts for the Civil Services Examina-
tion should continue to be three. For the members of the
Scheduled Castes and the Scheduled tribes, these should be
c limited to six."

We are referring to the report of the committee chaired by Dt. Satish
Chandra only for the purpose of showing the views expressed by it regard-
ing the permissible number of attempts for the CSE that a candida.te could
D make though this report was nor- available at the time of introduction of the
impugned proviso. It may be stated that the Government of India has +
decided to increase the number of attempts from 3 to 4 for the Civil Ser-
vices Examination 1990. Reference may also be made to the notification
dated 5th January, 1991 issued by the Department of Personnel and Train-
ing by which Rule 4 was amended to the fact that "every candidate appear-
E ing at the examination who is otherwise eligible shall be permitted 4
attempts at the examination."

Salient Features of the New Scheme:

Thus, the entire framework of the Civil services system have under-
F gone a metamorphosis under the Government of Indi~ Acts of 1919 and
1935 and thereafter under our present Constitution of India. Further, pur-
suant to the recommendations made by various Committees as seen earlier,
there has been radical change in the system of recruitment to the CSE in
regard to the scheme of examination, mode of· selection, the number of
G attempts and the eligibilicy of age limit since such a system was introduced.
~

It is clear from the discussion that the totality of the above review of '
the entire system which system is a legacy of and modelled on the British
on,e and a comprehensive survey on the different aspects of the recruitment
for the higher civil services manifestly show that this system did not ~ppear
H suddenly like a 'dues ex machina' created by the legislative test, but ·it
MOHANKUMAR v. U. 0. I. (PANDIAN, J.) 69

evolved in the direction of political objectivity and underwent a long A
...Jr- process of gradual transformation and the role and functions of this higher
civil services in India after the advent of independence irrefragably play an
important and crucial role not only in providing an element of commonality
in administration in our parliamentary democracy but also in accelerating
socio-economic development of our country in the context of our constitu- B
tional objective of growth with the social justice.

The present time cycle of the CSE is such that it takes almost a year
from the date of the preliminary examination to the commencement of the
final results in that the preliminary examination is held in the month of
June and the result of the preliminary examination is announced by the C
UPSC at the end of July. The Main examination is held in the first week of
November, the result· of which is usually announced by the third week of
March and the interviews begin in the third week of April to• the end of
May and the results are announced in the month of June.

The merit list of successful candidates is prepared on the basis of D
their aggregate marks in the Main Exarnination and interview test and then
the successful candidates are selected and allotted to different services
based on their ranks and preference. The top rankers in the merit list join
the IAS or IFS and then the JPS. The candidates who get into the merit list
with low position are brought and classified either under Group 'A' or E
Group 'B' as the case may be, but having regard to their ranks in the order
of merit and the selection of candidates in Group 'A' or Group 'B' is based
within the zone of eligibility.

It may be noted that out of total 27 services/posts, as per notification F
dated 30.12.1989, the first three, namely, IAS, IFS and IPS are All India
Services. Of the rest, from IV to XIX are Central Services Group 'A' and
the remaining XX to XXVII are Group 'B' services. For all these services,
the recruitment is made by combined competitive CSE.

Since t1'e pleadings in all the appeals are substantially of the same G
7-- paradigm and the issues of considerable importance raised are
homogeneous and as the principal arguments were advanced in the same
line except with some slight variation with regard to some particular issues
relating to certain appeals and also the reply was commonly made, we
propose to dispose of all the appeals by this com~on judgment. H
70 SUPREME COURT REPORTS [1991) SUPP. 1 S.C.R

A We may now in the above background of the history of the scheme of
the Civil Services, proceed to consider the various contentions advanced by ----;I--
the respective parties on the validity of the impugned second proviso to
Rule 4 of the C.S.E. Rules and for that purpose we, in order to have a
proper understanding and appreciation of the scope, object, ambit and
intent of the impugned proviso, shall re-produce the relevant Rules 4, 8
B and 17 and Regulation 4(iii-a) of the l.A.S. (Appointment by Competitive
Examination) Regulations, 1955.

CSE RULES ..+--

Rule 4: "Every candidate appearing at the examination, who is
c otherwise eligible, shall be permitted three attempts at the exa-
mination, irrespective of the number of attempts he has al-
~eady availed of at the IAS etc. Examination held in previous
year. The restriction shall be effective from the Civil Services
Examination held in 1979. Any attempts made at the Civil Ser-
vices (Preliminary) Examination held in 1979 and onwards will
D count as attempts for this purpose:
+--
Provided that this restriction on the number of attempts will
not apply in the case of Scheduled Castes and Scheduled
Tribes candidates who are otherwise eligible:
E Provided further that a candidate who on the basis of the
results of the previous Civil Services Examination, had been
allocated to the I.P.S. or Central Services, Group 'A' but who
expressed his intention to appear in the next Civil Services
·.~
Main Examination for competing for IAS, IFS, IPS or Central
!""'
Services, Group 'A' and who was permitted to abstain from the
F probationary training in order to so appear, shall be eligible to
do so, subject to the provisions of Rule 17. If the candidate is
allocated to a service on the basis of the next Civil Services
Main Examination he shall join either that Service or the Ser- -~

vice to which he was allocated on the basis of the previous Civil
G Services Examination failing which his allocation to the service
based on one or both examination, as the case may be, shall
?'(
stand cancelled and notwithstanding anything contained in
Rule 8, ·a candidate who accepts allocation to a Service and is
appointed to a service shall not be eligible to appear again in
the Civil Services Examination unless he has first resigned
H from the Service.
MOHAN KUMAR v. U. 0. I. (PANDIAN, J.) 71

NOTE:- A
1. An attempt at a preliminary examination shall be deemed to
be in attempt of the Examination.

2. If a candidate actually appears in any one paper in the
preliminary Examination he shall be deemed to have made an B
attempt at the examination.
-+
3. Notwithstanding the disqualification/cancellation of can-
didature the fact of appearance of the candidate at the ex-
amination will count as an attempt.
c
Rule 8: A candidate who is appointed to the Indian Ad-
ministrative Service or the Indian Foreign Service on results of
an earlier examination before the commencement of this ex-
amination and continues to be a member of that service will
not be eligible to compete at this examination. D

In case a candidate has been appointed to the IAS/IFS after
the Preliminary Examination of this examination but before the
Main Examination of this examination and he/she shall also not
be eligible to appear in the Main Examination of this examina-
tion ~otwithstanding that he/she has qualified in the Prelimi- E
nary Examination.

Also provided that if a candidate is appointed to IAS/IFS after
the commencement of the Main Examination but before the
result thereof and continues to be a member of that service,
he/she shall not be considered for appointment to any ser- F
vice/post on the basis of the results of this examination.

Rule 17: Due consideration will be given at the time of making
, appointments on the results of the examination to the
preferences expressed by a candidate for various services at
G
the time of his application. The appointment to various ser-
vices will also be governed by the Rules/Regulations in force as
applicable to the respective Services at the time of appoint-
ment.
72 SUPREME COURT REPORTS [1991) SUPP. 1 S.~ R.

A Provided that a candidate who has been approved for appoint-
ment to Indian Police Service/Central Service, Group 'A'
mentioned in Col. 2 below on the results of an earlier examina-
tion \\'ill be considered only for appointment in services men- -
tioned against that service in Col. 3 below on the results of this
examination.

B
SI. Service to which approved Service for which
No. ~-
for appointment eligible to compete
1 2 3
1. Indian Police Service. 1.A.S., 1.F.S., and
Central Services, Group
c 'A'
2. Central Services, Group 'A' I.AS., I.F.S. and 1.P.S.

Provided further that a candidate who is appointed to a
D Central Service, Group 'B' on the results of an earlier examina-
tion will- be considered only for appointment to I.AS., l.F.S.,
l.P.S. and Central Services, Group 'A'.

/AS (Appointment by Competitive Examination) Regulations,
1955
E
Regulation 4:

Conditions of Eligibility:-

In order to be eligible to compete at the examination, a can-
didate must satisfy the following conditions, namely: -
F
(i) Nationality....................................................... .

(ii) Age .........................................

(iii) Educational Qualifications ................................................... .
G
(iii-a) Attempts at the examination - Unless covered by any of
the exceptions that may from time to time be notified by the
Central Government in this behalf, every candidate appearing
for the examination after 1st January 1979, who is otherwise
eligible, shall be permitted three attempts at the examination;.
H
MOHAN KUMAR v. U. 0. I. (PANDIAN, J.) 73

and the appearance of a candidate at the examination will be A
deemed to be an attempt at the examination irrespective of his
disqualification or cancellation, as the case may be, of his can-
didature.

Explanation - An attempt at a preliminary examination shall be
deemed to be an attempt ~t the examination, within the meaning B
of this rule.
-+ - Reg. questions 1 to 6:

At the threshold we will take up the main question about the validity
of the second proviso to Rule 4 of the C.S.E. Rules of 1986, which proviso
is an additional one to the first proviso to Rule No. 4 and which applies C
only to the I.P.S and Central Services, Group 'A' selectees. This proviso
consists of two parts of which the first part enumerates certain conditions
on the fulfilment of which alone, an allottee to IPS or Central Services
Group 'A' on the basis of .the results of the previous CSE will become
eligible to re-appear in the next CSE (Main) to improve his prospect with
the hope of getting better position next year and joining in one of the
more preferred services, namely, IAS, IFS,· IPS or Central Services Group
'N subject to the conditions, enumerated in Rule 17 of CSE Rules.

As per the first part of the proviso, the prerequisite conditions which
are sine qua 11011 are as follows:
E
A Candidate who on the basis of the results of the previous CSE;

i) should have been allocated to the IPS or Central Services
Group'A'; ·
ii) The said candidate should have expressed his intention to
appear in the next Civil Service Main Examination for compel- F
ing for IAS, IFS, JPS or Central Services Group 'A' subject to
the provisions of Rule 17;
iii) The said candidate should have been permitted to abstain
from the Probationary Training in order to so appear.

The conditions in the second part of the proviso are as follows: G
1) If a candidate (who is permitt.ed to appear in the next CSE
(Main) on fulfilment of the conditions, enumerated in ·the first
part of this proviso) is allocated to a service on the basis of the
next Civil Service (Main) Examination, he should either join H
74 SUPREME COURT REPORTS [1991) SUPP. 1 S. C.R.

A that service or the service to which he has already been allo-
cated on the basis of the previous CSE;

2) If the candidate fails to join either of the services as men-
tioned in the first condition of this second part then his alloca-
tion to the service based on one or botli ·examinations, as the
B case may be, shall stand cancelled; and

3) Notwithstanding anything contained in Rule 8, a candidate
a) who accepts allocation to the service and
b) who is appointed to a ~ervice shall not be eligible to appear
again in CSE unless he has first resigned from the service.
c The sum and substance of the above proviso is that a candidate who
has already been allocated to the !PS/Central SerVices Group 'A' and who
in order to improve his efficacy of selection to higher civil service, expres-
ses his intention to appear in the next CSE (Main) for competing for IAS,
IFS, IPS or Central Services Group 'A' and who has bu:n permitted to
D abstain from the Probationary Training in order to do so, will become
eligible to appear in the next CSE (Main) but subject to the provisions of +-
Rule 17, and that the said candidate when allocated to a service on the
basis of the next Civil Services (Main) Examination can ;!ither join that
service or the service to which he has already been allocated on the basis of
the previous CSE and that if he fails to join either of the services, his
E allocation based on one or both the examinations, as the case may be, will
stand cancelled. Further, n~twithstanding anything contained in Rule 8, a
candidate who accepts allocation to a service and is appointed to that
service shall not be eligible to appear again in the CSE unless he has first
resigned from the service. In other words, a candidate falling within the
ambit of this proviso can appear in the CSE for all the permitted attempts
F subject to his age limit if he intends to appear again in the CSE provided
he first resigns from .the service which he accepts on allocation and to
which he is appointed. The restriction/embargo contained in Rule 17 is, if
a candidate has been approved for appointment to IPS, and expresses his
intention to appear in the CSE (Main) for higher civil service, the services
for which he is eligible to compete are IAS, IFS and Central Services
G Group 'A'. Similarly, a candidate who has been approved for appointment
to the Central Services Group 'A' and expresses his intention to appear in
the next CSE (Main), the services to which he will be eligible to compete
are IAS, IFS and IPS. The second proviso to Rule 17 provides that .a
candidat·e who is appointed to a Central Services Group 'B' on the results
of an earlier examination will be considered for appointment to IAS, IFS,
H.
MOHAN KUMAR v. U. 0. I. [PANDIAN, J.] 75
JPS and Central Services Group 'A'. A
The impugned second proviso to Rule 4, as we have already pointed
out, has been introduced by notification No. 13016/4/86-AIS (I) dated
13.12.1986.

The circumstances which necessitated and compelled the in- B
troduction of the above second· proviso to Rule 4 was due to
the receipts of various representations and frequent com-
plaints from the Academies and Training Institutes by the
Government informing that the candidates who, taking ad-
vantage of the opportunity of mobility from one service to
another, were intending to appear in the next CSE (Main) in C .
the hope of getting a better position and in a more preferred
service were neglecting their required training programmes
whereunder they had to undergo specialised training and ac-
quire the necessary potential to perform their tasks in the ser-
vice to which they have been allocated and for which training,
the Government incurs huge expenditure. Therefore, the D
Government in order to overcome the problem of indiscipline
amongst the probationers undergoing training, requested the
kothati committee for making a comprehensive survey on the
different aspects of the recruitment scheme and to submit a
report with its recommendations on the recruitment policy and
selection methods so that the candidates who are selected and E
allocated to a service and sent for training may not take enmass
leave for preparing and appearing in the next CSE by neglect-
ing and pretermitting their training programmes and thereby
creating a vacuum in the service for considerable time. The
said kothari committee, after deeply examining this serious
problem, submitted its report, the relevant part of which is as F
follows:
" 3.59. It may further be observed that the existing system
which permits that candidates qualifying for and joining the
police or the Central Services, may appear the Civil Services
Examination to improve their career opportunities, has come G
in for serious· criticism from the National Academy of Ad-
ministration and the respective employing departments. They
complain that such probationers neglect their training at both
the Academy and the Departmental Training Institutions until
they exhaust the admissible number of chances.
3.60. The present practice obviously is not desirable. 'l'he H
76 SUPREME COURT REPORTS (1991] suer. 1 s. C. R

A number of such cases would be very small with the proposed
restriction on the total number of attempts permitted to a can-
didate. Even so, we think it wrong that the very first thing a
young person should do in entering public service is to ignore
his obligations to the service concerned, and instead spend his
time and energy in preparation for re-appearing at the UPSC
B. examination to improve his prospect. This sets a .bad example
and should be discouraged. We recommend that commencing
from the 1977 examination candidates once appointed to the
All India or Central Services (Class I) should not be permitted
to re-appear at a subsequent examination without resigning
from service. (On introduction of Phase II of the Civil Services
c Examination Scheme, candidates. joining the Foundation
Course will not be permitted to re-appear at the Main Ex-
amination.)"

The Thirteenth Report of the Estimates Committee (1985-86) also
submitted its report on this aspect of the matter observing:
D "The committee urge upon the Government to review their
decision regarding allowing the probationers to reappear in 1-
the Civil Services Examination to improve their prospects. If it
is still considered necessary to allow this, the Committee sug-
gest that it may be limited to only one chance after a person
enters a Civil service." ·
E
The Central Government after considering the recommendations of
the above Committees regarding allowing probationers allocated to Civil
Services to appear in the next CSE (Main), addressed the UPSC to initiate
a review of the new system of CSE in pursuance of the recommendations of
the Estimates Committee and•thereafter, a meeting of all the cadre C•Jn-
F trolling authorities was convened by the Government and based on the
consensus arrived at the meeting, Rules 4 and 17 of the Civil Services
Examination Rules were amended by inserting the new provisos.

In this regard, it will be worthwhile to refer to Article 51-A in Part
IV-A under the caption 'Fundamental Duties' added by the Constitution
G (42nd Amendment) Act, 1976 in accordance with the recommendations of
the Swaran Singh Committee. The said Article contains a mandate of the
Constitution that it shall be the duty of every citizen of India to do the
various things specified in Clauses (a) to G) of which clause G) commands
that it is the duty of every citizen of India to strive towards excellence iii all
spheres of individual and collective activity so that the nation constantly
H rises to higher levels of endeavour and achievement."
':A
MOHAN KUMAR v. u. 0. I. (PANDIAN, J. I 77

In our view, the effort taken by the Government in giving utmost A
~--·
importance to the training programme of the selectees so that this higher
civil service being the top most service of the country is not wasted and
does not become fruitless during the training period is in consonance with
the provisions of Article 51-A (j).

The Constitution of India has laid down some basic principles relat- B
ing to public services in Part XIV entitled 'Services under the Union and
the State' which has two Chapters, namely chapter I on "Services" covering
-+ Articles 308 to 314 of which Article 314 is now repealed by the Twenty-
eighth Amendment Act, 19'n and Chapter II on "Public Service Commissions"
covering Articles 315 to 323. We feel that it is not necessary to deal with
the constitutional provisions relating to the executive power of the Union c
under Article 53 of the Constitution or the extent of the executive power of
the Union under Article 73 of the Constitution or recruitment and condi-
tion of service of persons serving the Union or the State as contemplated
under Article 309 of the Constitution of India since it is not the case of the
appellants that either the introduction of the proviso is in violation of any
of the provisions of the constitution or the proviso suffers for want of D
jurisdiction or by improper and irregular exercise of jurisdiction. How-
ever, incidentally Mrs. Chopra urged that the second proviso is bad since
the authorities have stepped out of the constitutional limits in issuing the
notification inserting the impugned proviso and that it has not been placed
before the Houses of the Parliament. This argument has to be simply
mentioned to be rejected because the proviso has been introduced by the E
Central Executive Authority under the powers flowing from Article 73 (1)
(a) of the Constitution, according to which the executive power of the
Union subject to the provisions of the Constitution shall extend to the·
v matters with respect to which Parliament has power to make laws, but of
course subject to the proviso made thereunder and further this submission
casually made was neither amplified nor pursued. Needless to point ~ut F
that whilst by virtue of clause 1 (a) of Article 73, the Union executive
whose power which is co-extensive with the legislative power of Parliament
can make laws on matters enumerated in List I (Union List) and List II
(Concurrent List) to the Seventh Schedule of the Constitution, under Ar-
ticle 162 of the Constitution, the executive power of the State executive
which is co-extensive with that of the State legislature can make laws in G
-r respect of matters enumerated in List III (State List) and also in respect of
matters enumerated in List II (Concurrent List), subject to the provisions
of the Constitution. In the present case, the central executive authority has
not either expressly or impliedly changed the policy of the Government by
exercising urtreasonable and arbitrary discretion and the present Rule 4
I H
1
I
,I
1-.
78 SUPREME COURT REPORTS [1991] SUPP. 1 S. C. R.

A with its newly added second proviso does not repeal the essential features ~
of the pre-existing Rule 4 but only limits the ambit of the operation of Rule
4 under a given situation. Hence, there is no substance in contending that
the second proviso is bad and that the central executive authority has
transgressed the constitutional limits.

B However, the validity of second proviso of Rule 4 is challenged on
the ground that it is violative of Article 14 of the Constitution about which
we will deal at the later part of the judgment.
-'r-
We feel that it would be appropriate, in this context, to. recall the ,._
observations of this Court in L.I.C. of India v. Escorts Ltd., AIR 1986 SC '
1370 at page 1403 = (1986) 1 SCC 264. The observation reads thus:
c
"When construing statutes enacted in the national interest, we
have necessarily to take the broad factual situations con-
templated by the Act and interpret its provisions so as to ad-
vance and not to thwart the particular national interest whose
advancement is proposed by the legislation."
D f-
In the above background, we shall now advert to the arguments ad-
vanced on behalf of the appellants.
/

Mr, ·p.1>~ Rao, senior counsel appearing for the appellants forcibly
and fervehtW oontended that the second proviso to rule 4 of the impugned
E notification is ultra-vires clause (iii-a) of Regulation 4 of the Regulations,
1955 inasmuch as the power to notify exceptions does not include the
power to make ineligible the candidates who are "otherwise eligible" in
terms of Clauses (i), (ii) and (iii) of Regulation 4. In other words, all
candidates, who satisfy the requirements of nationality, age and education-
'""'
al qualifications prescribed in clauses (i) to (iii) of Regulation 4, are en-
F titled to the maximum nl!mber of attempts prescribed in clause (iii-a)
which initially was three attempts, since raised tQ four attempts w.e.f.
1.2.90. He further submits that the expression 'in this behalr appearing in
the said clause (iii-a) refers only to the number of attempts of candidates
otherwise eligible in terms of clauses (i) to (iii) of Regulation 4 and that
the obvious intention in conferring the power on the Central Government
G to "notify exceptions 'in his behair of candidates 'otherwise eligible' was to ~-i;

enable the Government to increase th"e number of attempts in deserving
cases, such as - candidates belonging to Scheduled Castes and Scheduled
Tribes· and· other weaker sections including physically handicapped
category and that consequently the Central Government has no power to
H add more conditions of eligibility to those stipulated in Regulation 4 itself.
MOHAN KUMAR v. U. O. I. fl'ANDIAN, J.] 79

·According to him, the second part of the ~pugned proviso to Rule 4.of A
CSE Rules which insists that a candidate who was permitted to abstain
from probationary traiDing in order to appear at the next Civil Services
(Main) Examination and who accepted the allocation to a service sub-
1

sequently and is appointed to the service "shall not be eligible to appear·
again in the CSE (Main) unless he first resigns from the Service and in
other words it declares a candidate, who is o_therwise eligible in terms of B
Regulation 4 as ineligible unless he first res~gns from the service. This
additional condition of eligibility, according to him, is clearly beyond the
scope of the limited power to notify exceptioqs to the number of attempts
prescribed and, therefore ultra-vires Regulation 4 (iii-a).

Mr. Kapil Sibal, the Learned Additional: Solicitor General presented C
a plausible argument countering the pleadings of Mr. P.P. Rao and drew
our attention to Rule 7 of IAS (Recruitment) Rules of 1954 which deals
with the recruitment by competitive examination, and sub-rule (2) which
states that an examination, namely, the competitive examination for
recruitment to the service shall be conducted by the Commission in ac-
cor?ance wit~ such regul~tion~ as the Centr~l povernment may from time D
to ttme make m consultation with the Comm1Ssion and State Governments.
~ ·· According to him, the permissible number of attempts that a candidate can
avail is also a condition of eligibility because the object is for a dual pur-
pose, namely, 'to get the best and to retain the best', and that Regulation 4
(iii-a) should be read with Rule 4 of CSE as its part: He continues to state
that under Article 73 of the Constitution, subject to the provisions of the E
Constitution, the Central Government in exert:ise of its executive power
can regulate the manner in which the right of a candidate in appearing for
the competitive examination is to be exercised ~d, therefore, the restric-
.;;,,/ tion imposed in the second proviso to Rule 4 of CSE Rules is in no way
u/tra-vires clause (iii-a) of Regulation 4 of Regul~tions, 1955.
I F
The source of power for the Central Government fot making rules
and regulations for 'Recruitment and the Conditions of Services of Persons
appointed to All India Services' in consultations with the Government of
States concerned as well making regulation under or in pursuance of any
such right is derived from Section 3 of the All India Services Act, 1951.
I G
The Regulations, 1955 were made by Central Government in pur-
7"'" suance of rule 7 of IAS (Recruitment) Rules of 1954 in consultation with
1

the State Governments and the Union Public Service Commission. Clause
(iii-a) of Regulation 4 was substituted vide Department of Personnel A &
R Notification No. 11028/1/78/AIS dated 13.12.1978 and the latter part of
which by another notification dated 23.11.1988.· We are concerned only H
80 SUPREME COURT REPORTS (191Jl) SUPP. 1 S. C.R.

A with the earlier part of the said clause as per which unless covered by any
of the exceptions that may from time to t~me be notified by the Central
Government, in this behalf, every candidate appearing for the examination
after 1st January 1979, who is otherwise eligible, shall be permitted three
attempts at the examination. If Rule 4 of CSE Rules is examined in jux-
taposition of clause (iii-a) of Regulation 4, it is clear that both rule 4 of
B CSE Rules anQ Clause (iii-a) of the Regulation 4 show that every eligible
candidate appearing at the CSE should be permitted three attempts at the
examination. As we have pointed out in the earlier part of this judgment,
the attempts are now increased to 4 under Rule 4 of the CSE Rules.This
increase of attempts by the Government is by virtue of its power which
flows under Article 73 of the Constitution of India. The eligibility of a
C candidate to appear in the CSE with regard to nationality, age and educa-
tional qualifications 'is given under clauses (i) to (iii) of Regulation 4 but
the Government by exercise of its executive power has imposed certain
restrictions under some specified circumstances. Even today, in the nor-·
mat course, every eligible candidate can appear in the examination for all
the permissible attempts and the restriction of attempts is not applicable in
D the case of SC/ST who are otherwise eligible but subject to their upper age
limit. A plain and grammatical reading of clause (iii-a) of Regulation 4
shows that if the number of attempts are covered by any of the exceptions +
that may from time to time be notified by the Central Government in this
behalf, then the notification will become enforceable and only in the ab-
sence of such notification, every candiqate normally can appear for all the
E permitted attempts at the examination whether three or four. The im-
pugned second proviso does not restrict or put an embargo on the number
of attempts in the normal course. But the restriction is only when the
conditions enumerated in the impugned proviso are satisfied. In order to
appreciate and understand the restr}ction imposed, in its proper perspec-
tive, we shall refer to certain decisions of this Court cited by both the
F parties, firstly with reference to the interpretation of statutes and secondly
with regard to the construction of a proviso in relation to the subject mat-
ter covered by the section/rule to which the proviso is appended.
Before we cogitate and analyse this bone of contention in some
detail, it will be convenient at this stage to pore over some of the well
G established rules of construction which would assist us to steer clear of the
impasse entertained by the learned counsel, according to whom some com-
plications are created by the impugned notification being 11/tra-vires ·clause ~
(iii-a) of Regulation 4 of Regulations, 1955.
Maxwell on the "Intel]Jretation of Statutes" 10th Edition page 7 says
thus:
H
"...........if the choice is between two interpretations, the nar-
MOHAN KUMAR v. U. 0. I. (PANDIAN, J.) 81

rower of which would fail to achieve the manifest purpose of A
_J .. the legislation, we should avoid a construction which would
reduce the legislation to futility and should rather accept the
bolder construction based on the view that Parliament would
legislate only for the purpose of bringing about an effective
result." · B
<.
In "Principles of Statutory J.nterpretation" by Justice G.P. Singh, 4th
Edition (1988) at page 18, it is stated thus:
-+- "it is a rule now firmly established that the intention of the
legislature must be found by reading the statute as a whole". C
It is said in "Craies on Statute Law, 5th Edition" as follows:

"Manifest absurdity or futility, palpable injustice, or absurd in-
. convenience or anomaly to be avoided."
D
In the same text book, 6th Edition at page 89, the following passage
is found:

"The argument f.rom inconvenience and hardship is a
dangerous one and is only admissible in construction where the E
meaning of the statute is obscure and there are alternative
methods of constructions."

Viscount Simon in King Emperor v. Benoari Lal Shanna, AIR 1945
PC 48 has said thus:
F
"In construing enacted words, the Court is not concerned with
the policy involved or with the results, injurious or otherwise,
which may follow from giving effect to the language used."

In Wardurto11 v. Loveland, [1832] 2 D & CH. (H.L.)480 at 489, it is G
observed that:

"Where the Language of an Act is Clear and explicit, we must
give effect to it whatever may be the consequences for in that
case the words of the statute speak the intention of the legisla-
ture". H
82 SUPREME COURT REPORTS (1991) SUPP. 1 S. C.R.

A See also Suffers v. Briggs, [1982] 1A.C.1,8.

This Court in Commissioner of Income. Tax v. S. Teja Singh, (1959) 1
Suppl. SCR 394 has expressed that a construction which would defeat the
object of legislature must, if that is possible, be avoided.
I
B See also M. Pentiah and others v. Muddala Veeramallappa and
Other{, AIR 1961 SC 1107. · . .

.Desai, J speaking for the bench in Lt. Col. Prithi Pal Singh Bedi etc. v. -...-
Union of India & Ors., [1983) 1 SCR 393 at 404 has pointed out as follows:

''1'he dominant purpose in constru~g a statute is to ascertain
c the intention of the Parliament. One of the well recognised
canons of construction is that the legislature speaks its mind by
use of correct expression and unless there is any ambiguity in
the languagtl of the provision the Court should adopt literal
construction if it does not lead to an absurdity."
D The Constitution Bench of this court in A.R. Antulay v. R.S. Nayak,
(1984) 2 SCR 914 at 936 has observed ~hus:

"It is a well established canon of construction that the Court
should read the section as it is and cannot rewrite it to suit its
convenience; nor does any canon of construction permit the
E court to read the section in such manner as to render it to
some extent otiose."

The Supreme Court in Maharashtra State Board of Secondary and
Higher Seco11da1y Educatio11 and another v. Paritoslr Blmpeslr Kunnarslreth
etc. etc., [1985) 1 SCR 29 ruled that the well established doctrine o[ inter-
F pretation is "That the provisions contained in a statutory enactment or in
rules/regulations framed thereunder have to be so construed as to be in
harmony with each other and that where under a specific section or rule
a particular subject has received special treatment, such special provision
will exclude the applicability of any general provision which might other-
wise cover the said topic."
G
In Philips India Ltd. v. Labour Court, Madras and Ors., [1985) 3 SCC
103, it is observed: ·
"No canon of statutory construction is more firmly established
than that the statute must be read as a whole. This is a general
rule of construction applicable -to all statutes alike which is
MOHANKUMAR !· U. 0. I. [PANDIAN, J.) 83

spoken of as construction er visceribus actus." A
It has been held by this Court in Ba/asillor Nagrik Cooperative Ban.k
Ltd. v. Babubhai Shanker/al Pa11dya and others., [1987) 1 SCC at 608 as
follows:

"It is an elementary rule that construction of a section is to be B
made of all parts together. It is not permissible 1to omit any
part of it. For, the principle that the statute must be read as a
whole is equally applicable to different parts of the same sec-
tion".

In Dr. Ajay Pradlia11 v. State of Madlrya Pradeslr a11d Otlrers, [1988) 4
SCC 514 at 518, the Court has registered its view in the matter of constru- C
ing a statute thus:

"If the precise words used are plain and unambiguous, we are
bound to construe them in their ordinary sense and give them
full effect. The argument of inconvenience and hardship is a
dangerous one and is only admissible in construction where the D
meaning of the statute is obscure and there are alternative
methods of construction. Where the language is explicit its
consequences are for Parliament, and not for the courts, to
consider." ~ ·

We think, it is not necessary to proliferate this judgment by citing all E
the judgments and extracting the textual passages from the various Text
Books on the principles of Interpretation of statutes. However, it will suf-
fice to say that while interpreting a statute the consideration of incon-
>- venience and hardships should be avoided and that when the language is
clear and explicit and the words used are plain and unambiguous, we are F
bound to construe them in their ordinary sense with reference to other
clauses of the Act or Rules as the case may be, so far as possible, to make a
consistent enactment of the whole statute or series of statutes/Rules/
Regulations relating to the subject matter. Added to this, in construing a
statute, the Court has to ascertain the intention of the law making authority
in the backdrop of the dominant purpose and the underlying intendment of G
the said statute and that every statute is to be interpreted without any
violence to its language and applied as far as its explicit language admits
consistent with the established rule of interpretation.

A proViso to a Section/ Rule is expected to except or qualify some- H
thing in \he enacting part and presumed to be necessary. Coming to the
84 SUPREME COURT REPORTS (1991] SUPP. 1 S. C.R.

· A broad general rule of construction of the proviso Maxwell on "The Inter- ~
pretation Qf statute" in the 11th edition at page 155 has quoted a passage
from Kent's Commemary on American Law, 12th &in. Vol. 1, 463n, reading
thus:

"The true principle undoubtedly is, that the sound interpreta-
B 1tion and meaning of the statute, on a view of the enacting
<clause, saving clause and proviso, taken and construed
together is to prevail. n

Maxwell in his 12th Edition has quoted a passage from Att. Gen. v.
Chelsea Waterworks Co., [1731] Fitzg. 195 which reads that if a proviso
C cannot reasonably be construed otherwise than as contradicting the main
enactment, then the proviso will prevail on the principle that "it speaks that
last intention of the makers".
•
It is pointed out in Piper v. Harvey, [1958} 1 Q.B .. 439 that if, however,
the language of the proviso makes it plain that it was intended to have an
D operation more extensive than that of the provision which it immediately
follows, it must be given such wider effect. +
In R.v. Leeds Prison (Govemor), Exp. Stafford [1964} 2 Q.B. 625 it is
pointed out thus:

E "The main part of a section must not be construed in such a
way as to render a proviso to the section redundant."

A Constitution Bench of this Court in Ram Narain Sons Ltd. and
Ors. y. Asstt. Commissioner of Sales tax and Ors., [1955] 2 SCR 483 has
made the following observations:
F "It is a cardinal rule of interpretation that a proviso to a par-
ticular provision of a statute only embraces the field which is
covered by the main provision. It carves out an exception to
the main provision to which it has been enacted as proviso and
to no other."
G Another Constitution Bench in Abdul lobar Butt & Another v. State of
Jammu and Kashmir, [1957] SC:R 51 held that it is a fundamental rule of --t-
construction that a proviso must be considered with relation to the prin·
cipal matter to which it stands as a proviso.

See also Commissioner of Income Tax v. S. Teja Singh, [1959) 1
H Suppl. SCR 394.
MOHANKUMAR v. U. 0. I. [PANDIAN, J.) 85

Kapur, J speaking for the bench of this Court in The Commissioner A
_,;J .. of Income Tax, Mysore, Travancore Cochin and Coorg, Bangalore v. The
Indo Mercantile Bank Limited, [1959] 2 Suppl. SCR 256 reiterated the view
expressed by Bhagwati, J as he then was in Ram Narain Sons Ltd. v. As-
sistant Commissioner of Sales Tax, [1955] 2 SCR 483 at 493 and the ob-
servations by Lord Macmillan in Madras & Southern Maliratta Railway Co.
v. Bezwada Municipality, 1944 L.R.71 I. A. 113, 122 and laid down the B
sphere of a proviso thus:

"The territory of a proviso therefore is to carve out an excep-
tion to the mai11 enactment and exclude something which
otherwise would have been within the section. It has to
operate in the same field and if the language of the i:nain enact- C
ment is clear it cannot be used for the purpose of interpreting
the main enactment or to exclude by implication what the
enactment clearly says unless the words of the proviso are such
that that is its necessary effect. (Vide also Corporatio11 of the City
of Toro11to v.Attomey-General for Canada, [1946] A.C. 32,37."
D
Mis Macki1111011 Macki11zie & Co. Ltd. v.AudreyD'Cost a11d A11other,
[1987] 2 sec 469 may also be referred to.

When the impugned second proviso to Rule 4 of the CSE Rules is
interpreted in its grammatical meaning and cognate expressions and con-
strued harmoniously with. the substantive rule in the light of the above
decisions of this Court as well as the views expressed by various authors in E
their Text Books on this subject, it is pellucid that the said proviso only
carves out an exception to Rule 4 of the CSE Rules in given circumstances
and under specified conditions and, therefore, the second proviso cannot
be read in isolation and interpreted literally. On the other hand the sub-
stantive Rule 4 is to be read in conjunction with the two provisos appended F
thereto so as to have a correct interpretation.
'""
In the proviso, in dispute, there are no positive words or indications
which would completely exclude the operation of the substantive rule the
spirit of Y•hich is reflected in Regulation 4 of the Regulations, 1955. In fact,
Rule 4 as stood till 1986, in its normal course; allowed a candidate to G
appear for three attempts, since increased to 4 for 1990 and 1991 Examina-
tions. But the restriction is imposed by the seoond proviso only under
certain circumstances as repeatedly indicated above. Although the
notification of 1986 introducing the impugned proviso, no doubt, has to be
strictly construed, the Court cannot overlook the very aim and object of the
proviso thereby either defeating its purpose or rendering it redund~nt or H
86 SUPREME COURT REPORTS (1991) SUPP. 1 S. CR.

A inane or making it'otiose. Judged from any angle, we are not impressed by
the contention of Mr. P.P. Rao that there is a violent breach of the
provisions of the substantive Rule 4 of CSE Rules and Regulation 4 (iii-a)
-and we are not able to persuade ourselves to hold that the impugned
second proviso either subverts or destroys the basic objectives of Rule 4
and that it is u/tra-vires.

In this connection, it may be noted that the restriction or embargo,
as the one under consideration is not only placed on the candidates who
on the basis of the result of the previous CSE had been allocated and
appointed to IPS or Central Service Group 'A' but also on the candidates
appointed in the higher echelon of Civil Service, which we will presently
C deal with. There is a far more restrictive rule in existence, namely Rule 8
of the CSE Rules according to which a candidate who is appointed to the
Indian Administrative Service (IAS) or the Indian Foreign Service (IFS)
on the result of an earlier examination before the commencement of the
ensuing examination and continues to be a member of that service will not
be eligible to compete at the subsequent examination,. even if he/she is
D disillusioned and wants to switch over. In other words, this rule precludes
the candidates who have been appointed to the IAS or IFS, from sitting
in the ensuing examination while in _service. Further, this rule states that
in case, a candidate has been appointed to the IAS or IFS on the basis
of the earlier examination and after the subsequent preliminary examina-
tion, but before the Main examination, that candidate, if continues to be
a member of that service, shall not be eligible to appear in the ensuing
E main examination notwithstanding that· the said candidate has qualified
himself in the preliminary examination. Similarly· if a candidate is ap-
pointed to the IAS or -IFS after the commencement of the Main Examina-
tion but before the announcement of the result _and continues to be a
member of that service, the said candidate shall not be considered for
F appointments to any service/post on the basis of.the result of this examina-
tion. The purpose for inco~rating this uncompromising and stringent
provision is that the candidates appointed to the IAS and IFS are required
to man the key positions -both in the Central and State Services wherein
the appointees have to combine their intellectual capacity and the requisite
traits of personality and also to exhibit higher intellectual profidency and

G
leadership. Thus Rule 8 keeps up and,ritaintains the phe11omenon of the
upper civil service,_ run under our constitution wi~all enduring features
and facets of the said se_rVice on All India -basis. - But there is_ no bar for \
J
a candidate who is appointed to the IAS/IFS tesigning from that service, -
and sitting in the examination for IPS or any Central Service Group 'A'.
Under Rule 4 of CSE Rules notwithstanding anything contained in Rule
8, a candidate who a~pts allocation_ to a service and appointed to that
H
MOHAN KUMAR v. U. O. I. (PANDIAN, J.} · 'ir1

service shall not be eligible to appear again in the CSE· unless he first A
resigns from that service. In other words, a candidate who is allocated and
appointed to a service can sit in the ensuing examination provided he first
resigns from that service. This restriction, in our view, is a reasonable one
in order to achieve the desired result in the background of the situation
and circumstances about which we have elaborately discussed albeit.

In conclusion, we hold that the second provi~o to Rule 4 of CSE B
Rules does not travel beyond the intent of the main rule putting any unjus-
tifiable embargo and that the proviso is not ultra-vires Regulation 4 (iii-a)
of Regulations 1955 on the ground it makes the candidates ineligiole who
are otherwise eligible in terms of clauses (i) to (iii) of the said Regulation
and that the proviso to Rule 17 is not invalid. C
. ~ enactment is never to be held invalid unless it be, beyond ques-
tion, plainly and palpably in excess of legislative power or it is ultra-vires
or inconsistent with the statutory or constitutional provisions or it does
not conform to the statutory or constitutional requirements or is made
arbitrarily with bad faith or oblique motives or opposed to public policy. D
In our considered opinion, the second proviso to Rule 4 of CSE Rules
cannot be held to be invalid. on any of the grounds mentioned above.

The next question that has arisen for consideration is, how far the
principle of reasonable restriction can be applied in· the formulation of the
rules, keeping the relevance of the recruitment scheme to the civil service.
Neither an omnibus answer or a simplistic solution would carry us far to E
faee the public service reality in the modern state, the governing considera-
tion of which is the context of actual situation, circumstances, resources
and the societal goals of the particular State/country.
.
The further argument advanced in Civil Appeal Nos. 5506-5525 of
1990 (as appears from the written submission made by Mr. C.N. F
Sreekumar) is that on a correct interpretation of the impugned second
proviso, the last clause of which reads. "such candidate who accepts the
service shall not be eligible to appear again in the Civil Services Examina-
tion. unless he first resigns from the service" refers to only candidates, who
on the basis of the result of the previous CSE had been allocated to the
Central Services Group 'A' but who expressed their intention to appear G
in then~ CSE (Main) for competing for IAS, IFS, IPS or Central Services
Group 'A' and who are permitted to abstain from the probationary train-
ing in order to so appear and who joined Group 'A' service subsequently
on allocation either on the basis of the previous .examination or the sub-
sequent examination. According to him, in other words, the candidates
who did not avail the benefit of abstaining from the probationary training H
88 SUPREME COURT REPORTS (1991) SUPP. 1 S. C. R
~-
A with the permission of the Government in order to appear at the next Civil
Services (Main) Examination do not fall within the scope of the impugned -;l_.
restriction and they cannot be asked to resign as a condition precedent to
their appearing again in the CSE. This tenuous argument does not appeal
to us. Firstly the expression "such candidate", is not used in the proviso,
ori the other hand, the words used are "a candidate" (vide publication of
B Gazette of India dated 13-12-86). Secondly the last part of the· proviso, as
it stands, reads "a candidate who accepts allocation to a service and is
appointed to a service shall not be eligible to appear again in the Civil
Services Examination unless he has first resigned from the service." Thirdly ~-
a correct and proper reading of the last limb of the proviso clearly
· demonstrates that the expression "a candidate" refers only to the.candidate,
C mentioned in the earlier part of the proviso. Lastly, if such an interpreta-
tion is to be giveri on the wrong reading of the proviso, then the whole
object of the proviso will be defeated.

Reg. Question No. 7

Mrs. C.M. Chopra scathingly attacks the judgment of the Tribunal
D inter-alia contending that the protection guaranteed to the candidates
belonging to Scheduled Castes and Scheduled Tribes under the Constitu-
tion - more particularly under Article 335 of the Constitution of India-
cannot be taken away by an arbitrary executive action by introducing the
second proviso, thereby reducing the number. of permissible attempts for
appearing in the CSE hitherto enjoyed by such candidates; that the right
E statutorily and constitutionally vested on the SC/ST candidates, permitting
them to make unlimited attempts, of course, subject to the upper age limit
cannot be easily whittled down and that the second proviso is an inde-
pendent proviso, having no relation to the first proviso and apriori it cannot
control· and prevail upon the first proviso which declares "that this restric-
F tion on the number of attempts will not apply in the case of Scheduled
Castes and Scheduled Tribes who are otherwise eligible." According to
her, the reservation policy guaranteed to the SC/ST candidates cannot be ,;:-
obliterated by an unreasonable and arbitrary executive action.

No doubt, it is true that while the substantive Rule 4 of the CSE
Rules permits every candidate to appear for three attempts at the examina-
G tion - which .is now increased to four 7' the first proviso to this rule states ~
that this restriction on the number of attempts at. the examination is not
applicable in the case of SC/ST candidates who ~re otherwise eligible.
However, even in the case of SC/ST candidates, there is a specific restric-
tion so far as the upper age limit is concerned as envisaged under Rule 6
H (b) of the CSE Rules. Regulation 7(2) of Regulation, 1955 states that the
MOHAN KUMAR v. U. 0. I. [PANDIAN, J.) 89

candidates belonging to any of the Scheduled Castes or the Scheduled A
Tribes may, to the extent of the number of vacancies reserved for the ·
Scheduled Castes and Scheduled Tribes cannot be filled on the basis of the
standard determined by the Commission under sub-regulation (1) be
recommended by the Commission by a relaxed standard to make up the
deficiency in the reserved quota, subject to the fitness of these candidates
for selection to the Service, irrespe~tive of their ranks in_.order to merit at B
the examination. Sub-Regulation (1) of Regulation 7 reads that subject to
the provision of Sub-Regulation (2) the Commission (U.P.S.C.) shall for-.
ward to the Central Government a list arranged in order of merit of the
candidates who have qualified by such standard as the Commission may
determine.
c
In the normal course, a candidate belonging to SC/ST category can
enjoy all the benefits under the rules and regulations. But the restriction
imposed under the second proviso is only for a specified category of can-
didates by treating all such candidates at par and. without making any
exception to the candidates belonging to SC/ST. The submission made by
Mrs. Chopra that the second proviso is an independent one does not merit D
consideration because the second proviso to Rule 4 begins with the words
"proi.•ided further ...." which expression would mean that a strict compliance
of the second proviso is an additional requirement to that of the substan-
tive rule 4 and the first proviso. The expression "provided further" spells out
that the first proviso cannot be read in isolation or independent of the
second proviso but it must be read in conjunction with the second proviso.
E
To put in other words, once the candidates belonging to SC or ST get
through one common examination and interview test and are allocated and
appointed to a service based on their ranks and performance and brought
under the one and the same stream of category, then they too have to be
treated among all other regularly and lawfully selected candidates and F
there cannot be any preferential treatment at that stage on the ground that
they belong to SC or ST, though they may be entitled for all other statutory
benefits such as to the relax_ation of age, the reservation etc. The un-
restricted number of attempts, subject to the upper age limit, is available to
the SC/ST candidates in the normal course but that is subject to the second G
proviso because when once they are allocated and appointed along with
other candidates to a category/post, they are treated alike. .

Ramaswami, J speaking for the Constitution Bench in CA.
Rajendra11 v. Union of India & Ors., (1%8] 1 SCR 721 at page 733 while
interpreting Article 16(4) of the Constitution of India observed thus: H
90 SUPREME COURT REPORTS [1991} SUPP. 1 S. C.R.

A "Our conclilsion therefore is that Art. 16(4) does not confer
any right on the petitioner and there is no constitutional duty
imposed on the Government to make a reservation for
Scheduled Castes and Scheduled Tribes, either at the initial
stage of recruitment or at the stage of promotion. In other:
words, Art.16(4) is an enabling provision and confers a discre-
B tionary power on the state to make a reservation of appoint-
ments in favour of backward class of citizens which, in its
opinion, is not adequately represented in the Services of the
· ·State. We are accordingly of the opinion that th~ petitioner is
unable to make good his submission on this aspect of the case."

C A seven-Judges Bench in State of Kera/a v, N.M. Thomas, (1976] 2
SCC 310 before which some important questions arose with regard to the
intent of Article 16 of the Constitution, referred to and relied upon the
observation in Rajendran 's case holding that reservation is not a constitu-
tional compulsion, but is a discretionary one. In that case. Krishna Iyer, J
agreeing with the majority view expressed flis opinion thus:
D
'The State has been obligated to promote the economic inter-
ests of harijans and like backward classes, Articles 46 and 335
being a testament and Articles 14 to 16 being the tool-kit, if
one may put it thatway. To blink at this panchsheel is to be
unjust to the Constitution."
E
Further, the learned Judge held:
' '

· .·"Indeed; Article J35 is more specific and cannot be brushed ·
aside or truncated iri the operational ambit vis-a-vis Article
16(1~ and (2) without hubristic aberration."
. .. . . . .
F
. In Akliil Bllaratiya Soshit Kamraclrari Sangh (Railway) v: Union of
India & Other!, [1981]1 SCC 246, Krishna Iyer, J observed that Article
16(4) is not a.jarring note but auxiliary to fair fulfilment of Article 16(1) .
and further said, "Article 16(4) is notin the 'nature of an exception to
a
Article 16(1)~ It is facet of Article 16(1)which fosters and furthers the
G .idea of equality of opportunity with special reference to an underprivileged
and deprived class of citizens to whom egalite de droit (formal or legal
equality) is not egalite de fait (practical or~facttial equality).

See also M.R. Ba/aji ~. State of Mysore, [1963]' Supp. 1 SCR 439,
Tri/oki Nath v. State of J&K, [1969] 1 SCR 103 and T. Devadasan v. Union
H of 11idia, [1964] 4 SCR 680 and Comptroller and Auditor-Genera/ of India v.
MOHAN KUMAR v. U. 0. I. [PANDIAN, J.] 91
KS. !Q,gannathan, [1986] 2 SCC 679 at 684 (para 6). A
The Constitution, no doubt, has laid aspecial responsibility on the
Govtjrnment to protect the claims of SC/ST in the matter of public ap-
pointments under various Constitutional provisions of which we shall
presently,refer to a few. Artide 16(4), as manifested from the various
decisions of this court referred to hereinbefore, is an enabling provision B
conferring a discretionary power on the State for making any provision or
reservation of appointments or posts in favour of any backward class of
citizens, which in the opinion of the State, is not adequately represented in
the service under the State. The. expression 'backward class' obviously
takes within its fold people belonging to SC and ST (vide Janki Prasad v.
State of J&K, AIR 1973 S.C. 930). Clause 4 of Article 16 has to be inter- C
preted in the background of Article 335 as ruled by this Court in General
Manager v. Rangachari, AIR 1962 S.C. 36 and in Rajendran's case referred
to above. Article 335 enjoins that the claims of the members of the SC and
ST shall be taken into consideration, consistently with the maintenance of
efficiency of administration, in the making of appointments to services or
posts in connection with the affairs of the Union or of a State. Article D
320(4) makes it clear that the Public Service Cominissiori is not required to
·be consulted as respects the manner in which any provision referred to in
Art. 16(4) may be made or as respects the manner in which effect may be
given to Article 335. ·

The query before us is not in respect of the reservation of backward E
dasses or in respect of the claims of SC and ST services/posts, but it is
whether the C<}ndidates belonging to SC and ST are entitled to any excep-
tion from the operation of the proviso. The answer to the above query
would ~~ negative as we have aforesaid.

. It may be true, as fervently submitted by Mrs. Chopra there may be F
some hard cases, but the hard cases cannot be allowed to make bad law.
Therefore, in the case on hand, as long as the second proviso does not
suffer from any vice, it has to be construed, uniformly giving effect to all
those falling under one category in the absence of any specific provision
exempting any particular class or· classes of candidates from the operation
of the impugned proviso and no one can steal march over others falling G
under the same category. Hence, the right of candidates belonging to SC
and ST competing further to improve their career opportunities is limited
· to the extent permissible under the second proviso to Rule 4 read with
Rule 17 of the C.S.E. Rules.

For the aforementioned reasons, we find no merits in the submission H
92 SUPREME COURT REPORTS [1991] SUPP. 1 S. C. R

A of Mrs. Chopra that the second proviso is not applicable to the candidates
belonging to SC or ST.

Mr. Gopal Subramanian appearing on behalf of some of the appel-
lants supplemented by the arguments of other counsel, stating that the very
structure of the recruitment policy is itself disturbed to the great disad-
B vantage of the candidates who since then have been enjoying the right to
appear for 3 attempts as conferred by the substantive Rule 4 and that one
of the present restrictions that the candidates should severe from the ser-
vice, if intends to appear for the third time, after he has been allocated and - ,_-
appointed to a service is unjust, unreasonable and it seriously transgresses
on the main provision and virtually interdicts the candidates from availing
C their statutorily conferred and protected right. Therefore, such a ser-
veran~ of status from the service is ex-facie wrong, even if one can under-
stand losing of seniority. We have already discussed this. interpellation in
extenso while dealing with similar contentions and our considered view
expressed albeit will clearly answer this contention. Hence, we hold that
there is no question of severance of status as we have come to the con-
D clusion that the restriction imposed by the impugned proviso cannot be
said to be unjust, unreasonable or arbitrary or change of any policy and
moreover, the spirit of the main rule is not in any way disturbed. In the
result, we conclude that there is neither any tenable reason nor any logic in
the above submission.

E Reg. Question No. 8
Then a mordacious criticism was unleashed by all the learned coun-
sel appearing on behalf of the appellants inter-a/ia contending that the
second proviso which is an administrative instruction is highly arbitrary and
irrational having no nexus to the object of the scheme of recruitment to the
F post of civil services and that there was inadequate attention paid to the
Pexus between the intent of the proviso and the object to be achieved.

The learned Additional Solicitor General controverted the above
argument stating that the working system of the civil service in relation to
its logical relationship of recruitment rules on different aspects has been
G exclusively investigated bearing in _mind the process of rapid economic
development with a democratic framework of Government on Indian
scenario and the present proviso is having a dynamic, .reasonable and rela-
tive nexus with the objed to be achieved in .the present system of the civil
services within its administrative framework.

H No denying the fact that the civii service being the top most service in
MOHANKUMAR v. U. 0. I. [PANDIAN. J.] 93

the country has got to be kept at height, distinct from other services since A
.. -':- these top echelons have to govern a wide variety of departments. There-
fore, the persons joining this higher service should have breadth of interest
and ability to acquire new knowledge and skill since those joining the
service have to be engaged in multiple and multifarious activities as
pointed out supra. Jn order to achieve this object, the selectees of this
higher civil services have to undergo. training in the National Academy/ B
Training institutes wherein they have to undergo careful programme of
specialized training as probationers. The various schemes of training are
based on the conviction that splendid active experience is the real training
and the selectees are to be trained in the academies in all kinds of work
they have to handle afterwards with a band of senior chosen officers. Train-
ing at the academy comprises a foundation course followed by another c
course of practical training. The rationale underlying the course at the
training centres is that the officers of civil services must acquire an under·
standing· of the constitutional, social, economic and administrative
framework within which they have to function and also must have a com·
plete sense of involvement in the training and thereafter in the service to
which/she is appointed. It is apparent that initial training is in the nature of D
providing young probationers an opportunity to counter-act their weak
points and at the same time develop their social abilities and as such the
aspect of training is the most important of all.

It was brought to the hOtice of the Government that the probationers
who have been allocated to the JPS and Group 'A' service were more often E
than not completely neglecting their training in the academies!Training
Institutes and also have gone on enmass leave thereby creating a complete
vacuum in the academy and the Training Institutes for the purpose of
._).
preparing for the next CSE (Main) in the hope of getting a better position
and a more preferred service like IAS, IFS etc. without having a sense of
involvement with the service to which they have been allocated and ap- F
pointed on the basis of the earlier examination. It seems that the Govern-
ment had been facing this disturbed problem of indiscipline and
inattentiveness among the probationers undergoing training who were busy
themselves with the preparation for the ensuing CSE. As a result of this,
bent on preparation for the CSE the training imparted was not seriously
taken and the concentration of the proJ?ationers was only in the prepara- G
t-· tion of the next CSE. Consequently, the.standard ofofffcers turneaounrl'
the academy on completion of their training declined very much. There-
fore, in order to overcome this problem it was suggested and considered
...,
:. that the probationers selected and allocated to a service and sent for train-
be
ing should debarred from appearing in the ensuing CSE so that they can
H
~
94 SUPREME COURT REPORTS [1991] SUPP. 1 S. C.R.

A fully devote themselves to the training and take it more seriously. Resul-
tantly, the matter was considered in consultation with the Department of - ~-
Personnel and Training and it was agreed that the relevant rules should be
amended so as to prevent the IPS and Group 'A' probationers from joining
training at the academy in case they intend to take another CSE. These
measures are taken for making· probationers training more effective and
B meaningful.

Hence for the aforementioned reasons, we hold that there is a
dynamic nexus between the impugned second proviso and the object to be
achieved.

C Reg. Question No. 9
We shall now pass on to the real and pivotal point in issue which has
been hotly debated and eloquently articulated by all the learned counsel
contending that the impugned proviso is discriminatory and violative of
Articles 14 and 16 of the Constitution resulting in a disastrous effect.
D All the learned counsel appearing in all the batches of the appeals
amplified the above contention stating thus: -

ln all, there are 46 Group 'A' Central Services listed in the CCS
Rules of which only for 16 Group 'A' Services, recruitment is made
through the Civil Services Examination conducted by UPSC annually and it
E is only in respect of the candidates already allocated and appointed to the
IPS or to one or other of these 16 Group 'A' services, the impugned
proviso imposes an onerous restriction that they should first resign in
order to appear at the next Civil Service Examination whereas there is no --{_
such restriction so far as candidates recruited through the same open com-
F petition to the remaining Group 'B' services are concerned despite the fact
that the level of responsibility is the same and the qualifications prescribed
are comparable: This kind of classification between these two groups has
no rational nexus with the object of selection. The reasons attributed for
such a classification on the ground of neglect of training, financial loss,
unemployment situation, loss to service are all common to all the Central
G Service Group '.A' listed in the CCS Rules, and therefore, the impugned
second proviso is held to be discriminatory against the candidates ap- -\
·pointed to the IPS and 16 Group 'A' services and as such it is violative of .
Artricle 14. The impugned proviso makes a further discrimination vis-a-vis
candidates appointed to Group 'B' services, in that the said proviso by
placing the onerous condition of resignation from service of candidates
H appointed to the IPS and Group 'A' service in substance and effect and it
MOHANKUMAR v. U. 0. I. [PANDIAN, J.) • 95

precludes them from competing for higher civil service with the candidates A
appointed to Group 'B' service and thereby facilitates the selection of
candidates with relatively inferior merit to posts of superior Group 'A'
services. In other words, the impugned proviso excludes the candidates
appointed to group 'A' services from competition on the one hand and on
the other facilitates selection from amongst less meritorious candidates
appointed to Group 'B'. services to the highest and prestigious All India B
Services. This defeats the very object of securing the services of most
meritorious candidates to the most important All India Services and it is
arbitrary for want of rational nexus between the classification of candidates
with the proven superior merit and those of inferior merit and consequent·
ly the object of recruiting the most meritorious candidates to the top-most
All India Services is frustrated. · c
In addition to the above submission, reliance was placed on the dic-
tum laid down in R.K. Dalmia v. Justice Te11dolkar, [1959] SCR 279 at pages
296-297 holding, "In order to pass the test of permissible classifications
two conditions must be fulfilled, namely '(i) that the classification must be
founded on an intelligible __dj.fferentia With,4,istinguishes persons or things D
that are grouped together from others le'ft out of the group and, (ii) that
that differentia must have a rational relation· to the object, sought to be
achieved by the statute in question."

According to Mr. P.P. Rao, the recommendations of the Kothari
Committee and the Estimates Committee are not enforceable proprio E
vigore and the executive authorities who are expected to act justly and
reasonably, cannot usurp the functions of the Parliament and arbitrarily
put a restriction through the. impugned proviso which restriction is highly
-tainted with hostility and discrimination subjecting the candidates allocated
and appointed to the IPS and Group 'A' services to a harassing and op-
pressive treatment. F
Mr. Gopal Singh appearing for some of the appellants besides stating
that he is adopting the submissions made by other learned counsel cited
some decisions in support of his arguments that the discrimination now
existing consequent upon the introduction of the second proviso offends
Article 14 of the Constitution. G
At the risk of repetition, it may .be stated that under the present
system of civil services, all candidates are selected through one common
examination - preliminary and main and interview test. A list of se~ected
candidates in the order of merit is published and thereafter the successful
candidates are· allocated to different services. namely IAS, IFS, IPS, Group H
96 • SUPREME COURT REPORTS [1991] SUPP. 1 S. C. R

A 'A' and Group 'B' services based on their ranks and preferences. Of the
candidates, IAS and IFS are top rankers in the merit list.

In the notification dated 13.12.1986 issued by the Ministry of Person-
nel, there were only 28 services/posts of which the first three were IAS, IFS
and IPS and of the remaining (iv) to (xviii) were Group 'A' services and
B (xix) to (xxviii) were Group 'B' services. In the list of Group 'A' services,
items (xvii) and (xviii) were Grade II and III respectively. In notification
dated 19.12.1987, there were in total 27 services/posts of which the first
three were the same and the services under (iv) to (xix) were Group 'A'
services and (xx) to (xxvii) were Group 'B' services. In the nomenclature of
Group 'A' and Group 'B' services, there was slight variation. In the sub-
C sequent notification issued on 17.12.1988, besides the first three services
being the same, the total number of services in group 'A' was 16 and in
Group 'B' the number of services was reduced to 7. In 1989, the first three
services remaining the same, there were 16 services under items (iv) to
'(xix) in Group 'A' services and 8 services/posts in Group 'B' Services under
. item (xx) to (xxvii). In the notification issued on 5th January 1991, the total
D services were reduced from 27 to 26 and items (i) to (iii) remaining the
same, there were 16 Group 'A' services (iv to xix) and 7 services in Group
'B' (xx to xxvi). Thus, it is seen that there was inclusion or exclusion of one
service or other besides the change of nomenclature in one or two services
in the notifications for the CSE every year.

E As envisaged in Rule 17, due consideration is given at the time of
making appointments and on the results of the examination to the
preferences expressed by a candidate for various services at the time of his
application and the said appointments will be governed by the rules/regula-
tions in force as applicable to the respective Services at the time of ap-
pointment. As pointed out in detail in the preceding part of this judgment,
F under the first proviso to Rule 17, a candidate who has been approved and
appointed to IPS or Central Services Group 'A' will be eligible to compete
for appointment in services mentioned against that service in column no. 3
of the table given in the said rule. As per the second proviso appended to
the said rule, a candidate who is appointed to a Central Service Group 'B'
on the results of an earlier examination will be eligible to compete for IAS,
G IFS, IPS and Central Services Group 'A' and considered only for those
appointments. The intent of the above proviso proceeds on the footing that -~
all Central Services of Group 'A' stand on equal footing and likewise all
Group 'B' services also stand on equal footing within their respective group of
services/posts and that there is no point in competing for any one of the
services by a candidate within the same Group 'A' or Group 'B' services as the
H
•
MOHAN KUMAR v. U. 0. I. [PANDIAN, J.) 97

case may be when he has already been allocated and appointed to one of A
those services in either of the groups to which he has been selected on his
~- merit.

It cannot be disputed that the candidates allocated to Group 'A'
services are more meritorious compared to candidates allocated to Group
'B' services. Consequently, those allocated to Group 'B' services get lower B
position compared to those allocated to Group 'A' services. The pay scales
in Group 'B' services are comparatively less than those meant for IAS, IFS
and IPS and Central Services Group 'A'. There is a clear cut separation on
the basis of ranking and merit a11d, therefore, it cannot be said by any
')--· -
stretch of imagination that both Group 'A' and Group 'B' services fall
under one and the same category but on the other, these services are two
distinct and separate categories falling under two different classifications.
c
The Additional Solicitor General refuting the arguments of Mr. P.P.
Rao that there is a discrimination between Group 'A' and Group 'B' ser-
vices, in that whilst an Under Secretary, selected in Group 'A' services, is
not allowed to sit for examination by availing his third chance, a Section D
Officer coming under Group 'B' services is permitted to sit for examination
availing his chance without resigning from service, emphatically stated that
t- this argument has no merit since in Group 'A' services, there is a vertical
movement. The learned ASG further clarified that Group 'A' and Group
'B' services are two separate services, having different status, prospects,
conditions of services and pay scales and both the services under the two E
groups are not similarly situated, besides the candidates in Group 'A' ser-
vices standing in higher rank and merit.

The Tribunal after deeply considering the similar contention raised
1~
before it has concluded as follows:

"........ We do not see any reasonable basis to urge that Group
F
'A' and Group 'B' Services should be treated at par. Even their
pay scales and conditions of service not the same as in the
Group 'A' Services. It is, therefore, not a question of compar-
ing these two Services and placing them at par. In our opinion,
there is no discrimination. It will be noticed that the alleged G
discrimination is not on the basis of religion, race, caste, sex,
..._ descent, place of birth, residence or any of them. The dis-
crimination, if any, has a reasonable nexus with the objective
for which it has been made. The objective is to create five
categories of Services consisting of IAS, IFS, IPS, Central Ser-
vices Group 'A' and Central Services Group 'B'. We are fur- H
98 SUPREME COURT REPORTS (1991] SUPP. 1 S. C. R

A ther of the opinion that the Government having come ·across
certain difficulties and problems in the matter of probationary
training and the filling up of the vacancies in various Services ~.
made these rules. We do not find the argument of discrimina-
tion between Group 'A' and Group 'B' Services to be valid.·
We, therefore, reject these arguments".
B
One other argument advanced on behalf of the appellants was that
the candidates who have been allocated in Group 'A' services and whose
training is postponed at their request have to loose their seniority whereas
the candidates who have been appointed to Group 'B' services do not
suffer such kind of disability and that they can even after their training
C retain their original seniority which they had at the time of initial selection.
This serious setback suffered by a candidate selected in Group 'A' services,
according to the counsel for the appellants, indicates that there is an ap-
parent discrimination between the two sets of candidates. This contention
of the appellants, according to ASG, cannot be countenanced because the
services under Group 'A' and Group 'B' are different services and, there-
D fore, the conditions of service of a p\lrticular service cannot be compared
with other service especially when the services are not at par and more so
when the other service, namely, Group 'B' service is less in rank and merit
to that of Group 'A' Service.

In passing, all the learned counsel in assailing the validity of the
E impugned second proviso drew our attention to various Service Rules, such
as Central Secretariat Service Rules, Indian Revenue Service Rules, 1988,
Indian Customs and Central Excise Service Group 'A' Rules, 1987,
Department of Revenue (Customs Appraiser) Recruitment Rules, 1988,
Indian Railway Personnel Service (Recruitment) Rules, 1975 and Delhi
and Andaman and Nicobar Islands Civil Service Rules, 1971 - all made
F under Article 309 of the Constitution of India - and attempted to show
that various provisions of those rules relating to the recruitment and ser-
vice conditions go in support of their submissions that there is a hostile
discrimination between the candidates of Group 'A' services and Group
'B' services. In our considered opinion,. this abortive attempt made by the
G learned counsel does not loom large and assume any significance in ex-
amining the broad aspect of the main issues involved and in testing the
constitutionality of the said proviso.

Now, it necessarily follows whether the Classification of these two
services, one falling under Group 'A' and another falling under Group 'B'
H are based on intelligible differentia.
MOHAN KUMAR v. U. 0. I. [PANDIAN, J.) 99

The Constitution Bench of this Court in R.K. Dalmia's case (supra) A
after reiterating the legal principle enunciated by a Constitution Bench of
Seven Judges of this Court in Budhan Choudluy v. State of Bihar, (1955} 1
SCR 1045, has ruled thus:

"It is now well established that while Article 14 forbids class
legislation, .it does not forbid reasonable classification for the B
purposes of legislation." ·

y- Having regard to the objective in that case, it has been held:

"In determining whether there is any intelligible differentia on
the basis of which the petitioners and their companies have
been grouped together it is permissible to look not only at the C
facts appearing in the notification but also the facts brought to
the notice of the Court upon affidavits. The facts in the present
case afford sufficient support to the presumption of con-
s~itutionality of the notification and the petitions have failed to
discharge the onus which was on them to prove that other D
~· people or companies similarly situated have been left out and
that the petitioners and their companies have been singled out
for discriminatory and hostile treatment."

In Kumari Chitra Ghosh and Another v. Union of India and Others,
(1969] 2 sec 228, the facts were thus: E
The appellants filed a Writ Petition in the High Court challenging
the authority of the Central Government to select candidates for certain
--f"" reserved seats on the ground that they having secured 62.5 per cent marks
would have got admission but for the reservation of seats which were filled
by nominations by the Central Government. The High Court dismissed the
Writ Petition as well as the Review Petition. Aggrieved by the judgment of F
the High Court, the appellants appealed to this Court. Grover, J speaking
for the Constitution Bench approved the dictum in R.K Da/mia's case
(cited above) laying down the fulfilment of the two conditions as the test of
permissible classification and held that the classification in that case was
based on intelligible differentia, observing thus:·
G
-r-- "It is lhe Central Go.vernment which bears the financial burden
of running the medical college. It is for it to lay down the
· criteria for eligibility. From the very nature of things it is not
possible to throw the admission open to students from all over
the country. The Government cannot be denied the right to H
100 SUPREME COURT REPORTS (1991] SUPP. 1 S. C. R

A decide from what sources the admission will be made. That
essentially is a question of policy and depends inter alia on an
overall assessment and survey of the requirements of residents
of particular territories and other categories of persons for
whom it is necessary to provide facilities for medical educa-
tion. If the sources are properly classified whether on ter-
B ritorial, geographical or other reasonable basis it is not for the
Courts to interfere with the manner and method of making the
classification."
---<
In the above case, the Court has distinguished the decision in
Rajendran's case (referred to above).
c Y.V. Chandrachud, J as he then was speaking for the Constitution
Bench in State of Jammu & Kashmir v. Triloki Nath Khosa & Ors., (1974] 1
SCR 771 in which it was contended on behalf of the State that is always
open to the Government to classify its employees so long as the classifica-
tion is reasonable and has nexus with the object thereto, stated as follows:
D "Thus, it is no part of the appellants' burden to justify the
classification or to establish its constitutionality. Formal educa~
tion may not always produce excellence but a classification
founded on variant educational qualifications is for purposes
of promotion to the post of an Executive Engineer, to say the
least, not unjust on the fact of it and the onus therefore cannot
E shift from where it originally
lay .............................................................................................. .

Classification is primarily for the legislature or for the statutory
authority charged with the duty of framing the terms and con-
ditions of service, and if, looked at from the standpoint of the
F authority making it, the classification is found to rest on a
reasonable basis, it has to be upheld .......................................... .

Discrimination is the essence of classification and does
violence to the constitutional guarantee of equality only it rests
on an unreasonable basis ............................................................ .
G ············································································································· - _._
Equality is for equals. That is to say that those who are similar- '
ly circumstanced are entitled to an equal treatment

Judicial scrutiny can therefore extend only to the consideration
whether the classification rests on a reasonabl~ basis whether it
H bears nexus \Vith the object in view. It cannot extend to em-
MOHAN KUMAR v. U. 0. I. [PANDIAN, J.} 101

barking upon a nice or mathematical evaluation of the basis· of A
. classification, for were such an inquiry permissible it would be
open to the courts to substitute their own judgment for that of
the legislature or the rule-making authority on the need to
classify or the desirability of achieving a particular object."
P.N. Bhagwati, J and Krishna Iyer, J have concurred with the view
.expressed by chandrachud, J though they have added some more concur- B
ring observations of their own.

--y- It will be apposite to recall an observation of this Court in A.S.
Sangwan v. Union of India, [1980) Supp. SCC 559 at 561 reading as follows:
"A policy once formulated is not good for ever; it is perfectly
within the competence of the Union of India to change it, c
rechange it, adjust it and readjust it according to the compul-
sions of circumstances and the imperatives of national con-
siderations. We cannot, as Court, give directives as to how the
.. Defence Ministry should function except to State that the
obligation not to act arbitrarily and to treat employees equally
is binding on the Union of India because if functions under the D
Constitution and not ove.r it. .................................................
-~
·············································································································
It is entirely within the reasonable discretion of the Union of
India. It may stick to the earlier policy or give it up. But one
imperative of the Constitution implicit in Article 14 is that if it
does change its policy, it must do so fairly and should not give E
the impression that it is acting by any ulterior criteria or ar-
bitrarily."
See also Aklzil Bharatiya Soshit Karamchari Sangh (Railway)'s case
--..<'
(already referred to).

In Deepak Sibal v. Punjab University, [1989) 2 SCC 145 M.M. Dutt, J F
speaking for the Court has held thus:

--
"In order to consider the question as to the reasonableness of
the classification, it is necessary to take into account the objec-
tive for such classification. If the objective be illogical, unfair
and unjust, necessarily the classification will have to be held as
~ unreasonable. Surrounding ('.ircumstances may be taken into
G
~ consideration in support of the constitutionality of a law which
is otherwise hostile or discriminatory in nature. But the cir-
cumstances must be such as to justify the discriminatory treat-
ment or the classification subserving the object sought to be
'
achieved. A classification by the identification of a source must
......;. H
-~
102 SUPREME COURT REPORTS (1991) SUPP. 1 S. C. R

A not be arbitrary, but should be on a reasonable basis having a
nexus with the object sought to be achieved by the rules for
such admission. A classification need not be made with mathe-
matical precision but, if there be little or no difference between
the person or things which have been grouped together and
those left out of the group, the classification cannot be said to
be a reasonable one ......................................................................

It is true that a classification need not be made with mathe-
matical precision but, if there be little or no difference between
the persons or things which have been grouped together and
those left out of the group, in that case, the classification can-
c not be said to be a reasonable one ................................ :......

It is submitted that in making the classification the surrounding
circumstances may be taken into account ............... .
......................................................................................................... It
(
follows from the observation that surrounding circumstances
may be taken into consideration in support of the con-
D stitutionality of a law which is otherwise hostile or dis-
criminatory in nature. But the circumstances must be such as
to justify the discriminatory treatment or the classification sub-
+
serving the object sought to be achieved. In the instant case,
the circumstances which have been relied on by the respon-
dents, namely, the possibility of production by them of bogus
E certificates and insecurity of their services are not, in our
opinion, such circumstances as will justify the exclusion of the
employees of private establishments from the evening classes."
What falls instantly for determination is whether. the differentia on
which the classification is sought to be made has a rational relation with the
F object to be achieved. We have already discussed this question in detail
when we have separately examined the question as to whether the second
proviso is related to the purposes stated therein.

Whereas Mr. Kapil Sibal has urged that it is always open to the ......
Government to classify its employees as long as the classification is
G reasonable and has nexus to the object thereto, the rival contention is that
there is no nexus between the classification and the object to be achieved
thereby, that in fact the classification defeated that object, that if chances
of sitting for examination are denied to a few with equals; there is inherent
-
vice attached to such classification and that in such circumstances, the
H unreasonableness of the classification becomes patent. It is further urged
MOHAN KUMAR v. U. O. I. [PMTIIAN, J.) 103

J-- on behalf of the appellants that this classification foments frustration A
amongst the selectees of group 'A' services and produces inefficiency by
placing men of lower efficiency in a very advantageous position. Mr. P.P.
Rao would urge that if there is a vertical movement in group 'A' services as
stated by Mr. Kapil Sibal, how can candidates in group 'B' services be
permitted to sit for examination of IAS, IFS and IPS by passing the
meritorious candidates under group ~A' and therefore the classification is B
per se irrational, unjust and discriminatory and as such ultra-vires Article 14.
-'y
We shall now bestow out judicious thought over this matter and
carefully examine the rival contentions of the rival parties in the light of the
guiding principles, lucidly laid down by this Court in a series of decisions, a
few of which we have already referred to hereinbefore. The selections for c
IAS, IFS and !PS group 'A' services and group 'B' service are made by a
combined competitive examination and viva voce test. There cannot be any
dispute that each service is a distinct and separate cadre, having its
separate field of operation, with different status, prospects, pay scales, the
nature of duties, the responsibilities to the post and conditions of service
't etc. Therefore, once a candidate is selected and appointed to a particular D
cadre, he cannot be allowed to say that he is at par with the others on the
ground that ail of them appeared and were selected by a combined com-
petitive examination and viva voce test and that the qualifications
prescribed are comparable. In our considered view, the classification of the
present case is not based on artificial inequalities but is hedged within the E
salient features and truly founded on substantial differences. Judged from
this point of view, it seems to us impossible to accept the submission that
-< the classification rests on an unreal and unreasonable basis and that it is
arbitrary or absurd.

In this connection, it may be noted that in fact the civil services in F
foreign countries too, such as United States of America, Great Britain,
France and Canada grew up by degrees from time to time in tune with the
concept of new ideas under the pressure of some necessity or influence of
particular theories linked with the changing political ideology and social
conditions and with a view to trimming the civil service scheme and this
-j:-~
process of development is by way of evolution rather than revolution. G
We may again hark-pack to the case of the appellants and examine
whether this classification offends Articles 14 and 16 of the Constitution of
India.
Article 14 declares that the State shall not deny to any person H
104 SUPREME COURT REPORTS [1991) SUPP. 1 S. C.R.

A equality before the law or the equal protection of the law within the ter- -,l,
ritory of India. The cherished principle underlying the above Article is that
there should be no discrimination between one person and another if as
regards the subject matter of the legislation, their position is the same.
Vide Chiranjit Lal v. Union of India, [1950] 1 SCR 869 or in other words its
action must not be arbitrary, but must be based on some valid principle,
B which in itself must not be irrational or discriminatory (Vide Kasturi v.
State of J & K (albeit). As ruled by this Court inAmeeroonissa v.Mahboob,
[1953] SCR 405 and Gopi Chand v. Delhi Administratio11, AIR 1959 SC 609 -~
that differential treatment does not per se constitute violation of Article 14
and it denies equal protection only when there is no rational or reasonable
basis for the differentiation. Thus Article 14 condemns discrimination and
C forbids class legislation but permits classification founded on intelligible
differentia having a rational relationship with the object sought to be
achieved by the Act/Rule/Regulation in question. The Government is
legitimately empowered to frame rules of classification for securing the
requisite standard of efficiency in services and the classification need not
D scientifically be perfect or logically complete. As observed by this Court +
more than once, every classification is likely in some degree to produce
some inequality.

The provisions of Article 14 of the Constitution have come up for
discussion before this Court in a number of cases but we feel that in the
E present case, it is not necessary to go in for any lengthy discussion as to the
origin, meaning and the gradual development of the concept of principles·
and enlargement of the scope and effect of this Article. Suffice to mention
a few decisions of this court relating to the issue under consideration,
namely- Chiranjit Lal Clwwdlmry v. The Unio11 of India; Budhan
Clwudluy and Others v. The State of Bihar; R.K Dalmia v. Justice Ten-
F dolkar (all cited above); E.P. Royappe v. State of Tamil Nadu, [1974] 2 SCR
348; Ma11eka Ga11dhi v. U11ion of India, [1978] 1 SCC 248; Ramona v. r
International Airport Authority of I11dia, AIR 1979 SC 1928; Union of India
v. Tulsiram Patel, [1985] 3 SCC 398; Swadeshi Cotton Mills v. U11ion of
India, [1981] 2 SCR 533; and Ce11tral Inland Water Transport C01poration v.
Brojo Nath, AIR 1986 SC 1971.
G
In Devadasan v. Union of India, [1964] 4 SCR 680 wherein Subba
Rao, J as he then was, has dissented from the majority an.d pointed out that
the expression "equality before the law or the equal protection of the laws"
means equality among equals and that Article 14 does not provide for an
absolute equality of treatment to all persons in utter disregard in every.
H conceivable circumstance of the differences.
.,

MOHANKUMAR v. U. 0. I. (PANDIAN, J.) 105

_J_ In Birendra Kumar Nigam and Others v. Union of lndia,Writ Petition A
Nos. 220-222 of 1963 decided on 13.3.1964, three writ petitions were filed
under Article 32 of the Constitution raising a common question regarding
the constitutional validity of certain rules framed by the Union Ministry of
Home Affairs and certain directions issued by it relative to the appearance
of Assistants employed in the Central Secretariat Service in the competi-
tive examination held by the Union Public Service Commission for recruit- B
ment to certain All India Services. In each of the above three petitions,
~ grounds of challenge was same viz., that the impugned rules and directions
were violative of Articles 14 and 16 (1) of the Constitution.

The facts in relation to the three petitions were slightly different.
Therefore, by way of illustration we will tersely state the facts in Writ C
Petiti~n No. 220 of 1963.

The petitioner in that case was appointed to the post of an Assistant
in the Central Secretariat Service from 1956 and he joined the same on
29.8.56. But in March of that year, he had already submitted his application
to be included as a candidate for competing in the combined examination D
for the several All India Services - IAS, IFS, IPS and the several
categories of the All India Central Services, the Examination for which
was held in September 1956 but before that date he received an informa-
\ tion from the Home Ministry that he could not appear for that examination
because he was still on probation. prior to the date on which he completed
his probation and was confirmed as an Assistant, the Ministry of Home E
Affairs issued the impugned notification on 14.3.1957 pointing out that
there was an acute shortage of Grade IV Assistants in the Secretariat
-~ Service and that the Assistants would not be permitted to compete at the
examination to be held in 1957 and that those who were desirous of com-
peting their candidature would be restricted to an appointment to Grade
III of the Central Secretariat alone. F
We are not giving the facts of other two writ petitions since the
common question di!cided was the same.

Rajagopala Ayyangar, J while speaking for the Constitution Bench in
that case has held:
G
"If, as must must be, it is conceded that the existencies, con-
venience, or necessity or a particular department might justify
the imposition of a total ban on the employees in that depart-
ment, from seeking employment in other departments, a par-
tial ban which permits them to seek only certain posts in the H
I'

'106 SUPREME COURT REPORTS (1991) SUPP. 1 S. C. R

A s_ame department cannot be characterised as illegal as being
discriminatory. The mere fact therefore that under the rules
officers in certain other departments are permitted to compete
for a Class I post is no ground by itself for considering such a
variation as an unreasonable discrimination, violative of AI-
ticles 14 and 16 (1) of the Constitution as not based on a clas-
B sification having a rational and reasonable rela:tion to the
object to be attained. Of course, no rule imposes a· ban on
these employees resigning their posts and competing for posts
in the open competition along with 'open market 'Candidates."
As we have repeatedly held that each of the civil services, namely
IAS, IFS, IPS, Group 'A' Services and Group 'B' Services is a separate and
C determinate service forming a distinct ~dre and that each of the services is
founded on intelligible differentia which on rational grounds distinguishes
persons grouped together from those left out and that the differences are
real and substantial having a rational and reasonable nexus to the objects
sought to be achieved and that there is no question of unfairness or ar-
bitrariness in the ex~cutive action in adding the second proviso to the
D substantive rule 4 of CSE Rules. When the submission of the learned coun- +
sel for the appellants is carefully examined in the backdrop of the legal
principles and the factual position, we are in full agreement with con-
clusion arrived at by the Tribu~al that the impugned second proviso to
Rule 4 is not violative of Articles 14 or 16 of the Constitution of India.

E In Summation:
The impugned second proviso tci Rule 4 of the CSE Rules intro-
duced by Notification No. 13016/4/86- AIS(l) dated 13.12.1986 is legally
and constitutionally valid and sustainable in law and the said proviso
neither travels beyond the intent of the main rule, namely, Rule 4 of the
F CSE Rules nor it is ultra-vires Regulation 4 (iii-a) of Regulations, 1955
that it is neither arbitrary nor unreasonable and that there is a dynamic
and rational nexus between the impugned second proviso and the object
to be achieved. There is no discrimination whatsoever involved on account
of the introduction of the second proviso in question and the said proviso
is not ultra-vires Article 14 or Article 16 of the Constitution of India.
G Before parting with the judgment, we feel that it has become neces-
-sary to give a specific direction to the respondents inclusive of the Union
Public Service Commission in pursuance of the earlier directions given in .
our order dated 7.12.1990 (vide Annexure 'A') which directions were given
in pursuance of various interim orders passed by the Central Administra-
H tive Tribunal, Principal Bench, New Delhi and thereafter finaUy in its final
108 SUPREME COURT REPORTS (1991) SUPP. 1 S. C. R

A In the result for the reasons aforementioned the judgments of the .
Tribunal are confirmed subject to the above directions and all the appeals i--.
are dismissed accordingly. No order as to costs.

ORDER

We have heard all the learned counsel appearing in their respective
B appeals and also the learned Additional Solicitor for respondents for a
very considerable length of time. The .main thrust of the argument ad-.
vanced on behalf of all the appellants is that the second proviso to Rule 4
of the Civil Services Examination Rules (published in the Gazette of India,
Extraordinary, Part-I Section, dated December 17, 1988) is offending Ar-
C tide 14 of the Constitution of India and is contrary to law. As the above
question requires a careful examination with regard to the individual cases
listed for consideration and as we are informed that the Central Services
Examination Commences on 17.12.1990, we are constrained to give the
following directions on the 'basis of the conclusions arrived at by the
Central Administrative Tribunal, Principal Bench, New Delhi in its judg-
D ment dated 20th August 1990. The relevant conclusions as they appear
from the concluding portion of the judgment of the Tribunal are as fol-
lows:- -+-
S(ii). A candidate who has been allocated to the I.P.S. or
to a Central Services, Group 'A' May be allowed to sit at the
E next Civil Service Examination, provided he is withil! the per-
missible age limit, without having to resign from the service to
which he has been allocated, nor would he lose his original
seniority in the service to which he is allocated if he is unable
to take training with his own Batch.
6. Those applicants who have teen allocated to the l.P.S. or
F any Central Services, Group 'A', can have one more attempt in
the subsequent Civil Services Examination for the services in-
dicated in Rule 17 of the C.S.E. Rules. The Cadre Controlling
Authorities can grant one opportunity to such candidates.
7. All these candidates who have been allocated to any of the
Central Services, Group 'A', or l.P.S. and who have appeared
G in Civil Services Main Examination of a subsequent year under
i

the interim orders of the Tribunal for the Civil Services Ex-
amination in 1988 or 1989 and have succeeded, are to be given
benefit of their success subject to the provisions of Rule 17 of
the C.S.E. Rules. But this exemption will not be available for
H any subsequent Civil Services Examination.
MOHAN KUMAR v. U. 0. I. (PANDIAN, J.) 109
It is pertinent to note that the respondent has not challenged the A
above directions given in the concluding part of the judgment. So far as
the conclusions under para Nos. 6 and 7 reproduced above, the learned
Additional Solicitor General states that the respondent has no objection
to have them sustained. So far as the .directions under para No. 5 (ii) is
concerned, the Tribunal has allowed the candidates who have been allo-
cated to the l.P.S or the Central Services, Group 'A' to sit at the next Civil B
Service Examination subject to the condition that they must be within the
permissible age limit and without having to resign from the service to which
they have been allocated nor would they lose their original seniority in the
service to which they are allocated if they are unable to take training with
their own Batch. The Tribunal has used their expression "may be allowed
to sit at the next Civil Service Examination but it did not restrict it only C
with regard to the preliminary examination as now contended by the
learned Additional Solicitor, according to whom those candidates are not
eligible to sit for the main examination since the Tribunal has upheld the
validity of the second proviso to Rule 4 of the CSE Rules.

In order to properly understand and appreciate the conclusions ar-
rived at by the Tribunal under para 5(ii), we shall reproduce some interim D
orders made by the Tribunal during the bearing of the 0.As.

In M.P. No. 1269/90 in OA No. 1074/90 dated 31.5.1990 which has
given rise to SLP (Civil) Nos. 13525-38/90, the CA.T., New Delhi has
passed the following order: -
"We have beard the learned counsel for the parties and con- E
sidered the matter. In our opinion, a direction should be issued
to the respondents to permit the applicants to appear in the
preliminary C.S.E. 1990 without pressing for their resignations
from the service and respondents may also grant them neces-
sary leave etc. This interim order will be subject to the order in F
O.A. 206/1989 and connected cases."
Interim order passed on 4.6.1990 in Regn. No. OA/160/90 by CAT,
New Delhi which has given rise to Civil Appeal No. 5470/90 reads thus: -
''The learned counsel for the applicant states that the applicant
has applied for the 1990 Civil Services Preliminary Examina-
tion well in time and has also received Roll Number from the G
Union Public Service Commission and that he is not being
allowed to appear in the Examination in \iiew of the power
conferred by the second proviso to Rule 4 of the Civil Services
Examination 1987. The examination is going to be held on
10.6.1990. In view of this, we direct that if it is convenient and
administratively possible, the respondents shall allow the ap- H
110 SUPREME COURT REPORTS (1991) SUPP. 1 S. C.R.

A plicant provisionally to appear in the said examination.
Respondents may also consider granting him necessary leave
etc. for the purpose.
Issue dasti."

In M.P. No. 1251/90 in O.A. No.944/1989 which has given rise to Civil
B Appeal No. 5471/90, CAT, New Delhi has passed the following order:-
"We have heard learned counsel for the parties and we think it
will be in the interest of justice to allow the prayer for interim
order to enable the petitioner to sit in the preliminary. C.S.E.
1990. Learned counsel for the petitioner states that the
petitioner has received the admission card. He is directed to
c give the Registration No./Roll No. to the Secretary, UPSC by
4.6.1990. We direct the respondents to permit the pet~tioner to
appear in the preliminary C.S.E. 1990 without pressing for his
resignation from the service and also grant him necessary leave
etc. for appearing in the said examination. This interim order
will be subject to the order in OA. 944/1989. The Misc. Petition
D is accordingly disposed of.

Order dasti."
In OA 913/90 (MP 1133/90) and OA No. 914/90 (MP 1134/90), which
have given rise to Civil Appeal Nos. 5506-5525/90 the Tribunal has passed
the following order on 17.5.1990:-
E
"As regards interim relief, the respondents are directed to per-
mit the applicants to appear in the Civil Services Examination
1990 and to provide necessary facilities like leave etc. to enable
them to appear in the ensuing Civil Services Examination, 1990
subject to the decisions in the Bunch of cases including
F O.A.No. 206/89AlokKumar& Ors. v. U.O.I. .

List the matter on 29.5.1990.
Orders (Dasti)"
It seems no clarification has been sought for from the Tribunal by the
G respondents as to whether the expression "next Civil Service Examination" is
confined only to the preliminary or whether it includes the main examination
also. Though some of the interim orders passed by. the Tribunal which we
have extracted above show that the said interim orders' were passed per-
.milting the candidates to sit for the preliminary Central Service Examina-
-uon of 1990 subject to the decisions of the O.As, in the final judgment,
H no restriction is shown. In other words, the conclusion under.para S(ii) is
MOHAN KUMAR v. U. 0. I. [PANDIAN, J. J 111,

not limited subject to any contingency; but on the other hand, it is absolute. A
Therefore, that expression in the absence of any specific restriction,
• has to hi.elude both the preliminary as· well as the main examinations.
Hence in the absence of any challenge to the directions embodied in the
impugned judgment, we hold that all those candidates falling under para
No. 5(ii) can sit both for the preliminary as well as the main examinations
subject to their eligibility otherwise. The condition incorporated in the B
later part of the impugned proviso that they should resign from the service
to which. they have been allocated would not operate against them for the
main examination of 1990 lest that direction would be meaningless.

Hence we permit all those candidates falling under Para .
Nos.5(ii), 6 and 7 to, sit for the main examination subject to the condition C
that each candidate satisfies the Secretary, Union Public Service Commis-
sion that he/she falls within these categories and that the concerned can-
didates have passed the preliminary examination of 1990 ·and have also
applied for the main examination within the due date. This permission is
only for the ensuing examination. As we are now permitting those who
have passed the preliminary examination of 1990 and have applied for the D
main examination on the basis of the unquestioned and unchallenged
I
directions given under paras 5(ii), 6 and 7 of the judgment of the CAT,
·-t
Principal Bench, New Delhi, the same benefit is extended to the other
appellants also who satisfy those conditions as mentioned under paras
5(ii), 6 and 7.
E
The Secretary, Union Public Service Commission will make the
necessary arrangements enabling the candidates to sit for the main ex-
amination of 1990.

We will give the judgment touching on the constitutionality of the
second proviso to Rule 4 of CSE Rules later. We would once again like to F
state that the above directions are given only on the basis of the unchal-
lenged conclusions arrived at by the Central Administrative Tribunal, Prin·
cipal Bench, New Delhi. '

T.N.A Appeals dismissed.