O.S. SINGH AND ANOTHERversusUNION OF INDIA AND ANOTHER

                       O.S. SINGH AND ANOTHER                                         A
                                        v.
                    UNION OF INDIA AND ANOTHER

                             OCTOBER 12, 1995

              [S.C AGRAWAL AND G.B. PATTANAIK .J.J.]                                  B

      Sc1vicc Law.

      l.P.S. Rec11titment Rules 1954'-R 4 & 6.

      l.P.S. (Appointment by Promotion) Regulatio11 1955-Regulation 5,7,9.            c
       Promoti<m-State Police Se1vice to l.P.S.-Delay due to adverse
ren1arks-Re111arks expunge~Retrospective appointn1ent given-Benefit
given i11 fixing year of allotment and inter-se senioiity.

      l.P.S. (Regulation of Seni01ity) Rules-1954'-R 3 (2) (b )-Suffm from            D
'casus 01nissus'.

      Statut01y inteipretation of R 3 (2) (b)-'Such officiatio11' to mean
'Substantive appointntent' in cases where proniotee did not officiate in senior
post p1ior to date of substantive appointntent.
                                                                                      E
      'Casus ontissus'-Judicial decisions-Two trend~Traditional ap-
proach that cowts ca1111ot legislate-Other to fi11d the i11te111io11 of Parliament.

      Year of allotment-To be related to date of substa11tive appoi11tment-
Con1petent autho1it_v can assign.
                                                                                      F
      Distinction between-'Substantive' and 'officiating' ap]Jointnient.

       Appellant was in State Police Service. His name was not included in
the select lists for 1974 to 1976 for promotion to l.P.S. from State Police
Service due to adverse remarks. On representation, the remarks were
expunged and his name was included in select list in 1977. He nlTiciated in           G
a senior post in the 1.P.S. from March 30, 1998. Appellant filed writ
petition Llefore il.P. High Court in 1984 for reconsideration of his case.
The High Court, relying onA.K. Clwwdluy v. State of Bihar and Q,,·., [1984]
2 S.C.R. 299, passed an interim order whereon the State Govt. recom-
mended the Appellant's name to the Union Govt. which decided to appoint               H
                                     261
    262                   SUPREME COURT REPORTS [1995] SUPP. 4 S.C.R.

A   him to the I.P.S. with effect from March 31, 1976 and assigned the year of
    allotment as 1970 based on R 3(3)(b) of Seniority Rules and inter-.1·c
    seniority the Appellant was placed above Respondent No. 4. Aggrieved, by
    the fixation seniority Respondent No. 4 challenged the Union Govt.'s order
    before the Central Administrative Tribunal, Principal Bench.

B         The Tribunal, relying on R 3(3) (b), of the Seniority Rules, held that
    the year of allotment must be related to continuous ofliciation of' the junior
    most ollicer in a senior post from a date earlier than the Appellant. Since
    Respondent No. 4 was the junior most ollicer, the year the allotment of the
    Appellant was to be 1973 and he was held to be junior to Respondent No.
C   4 who was a direct recruit.

          From the said order of the Tribunal two Appeals were filed before
    this court - one by the Appellant and the other by the Union of India. On
    behalf of the appellants it was contented that the Tribunal erred in taking
    into account continuous officiation only, overlooking the retrospective date
D
    of appgintment and the appellant having been reconsidered and appointed
    from 31-3-76, his seniority is to be related to that date and the period from
    March 31, 1976 till March 30, 1978 cannot be ignored. Respondent No. 4
    relied on Syed Khalid Rizvi's case, J.T. Supp l SC 169, and submitted that
    the year of allotment must be as per Rule 3(3) (b) of Seniority Rules and
E   retrospective appointment is of no consequence.

          Allowing the Appeals and setting aside the order of the Tribunal,
    this Court


F          HELi) : J. The Tribunal was in error in arriving at the year of
    allotn1ent as 1973 based only on appellant's continuous ofliciation in a
    senior post with etlect from March 30, 1978 and ignoring the Union Govt's
    decision to appoint him retrospectively with effect from March 31, 1976.
    Seniority of Appellant vis-a-vis Respondent No. 4, is not to be based on
    factual officiation but on actual date of appointment. Benefit of recon-
G sideration cannot be taken away for determining year of allotment and
    seniority. TI1e order of Union Govt. is not arbitrary and         follows the
    scheme of Rule 3 (3) (b) of Seniority Rules. [269-R-C]

          Syed Khalid Rizvi & Ors. v. U.O.J. & Ors., J.T. Supp 1, 169, distin-
H   guished.
                             0.S. SINGH v. U.O.l.                            263

      A.K. Chowdhry v. State of Bihar & Ors., [1984] 2 SCR 299, relied on. A

       2. 'Officiating continuously in a senior post' in R. 3(3) (b), of Seniority
Rules, is to be construed to mean holding a senior post on officiating basis
prior to substantive appointment on it. Since a person substantively ap-
pointed to a post cannot be treated as officiating on the post after he has been
substantively appointed on that post, the said expression cannot be con-             B
strued as referring to the period of officiation subsequent to the date of
substantive appointment. For ascertaining the period of continuous officia-
tion on a senior post for assigning year of allotment to a promotee officer, R
3 (3) (b) of the Seniority Rules, has to be read with Explanation 1. Thus two
conditions are required for determination of seniority - (1) inclusion of
name in select list and (2) continuons officiation on a senior post from a date
                                                                                     c
prior to date of his substantive appointment. [271-A-D]

      3. Substantive appointment confers on a person so appointed a sub-
stantive right to the post unlike officiating appointment which is only tran-
sitory in character and under ordinary law of master and servant is
                                                                                     D
terminable at any time. [270-H]

      Purshottam Lal Dhingra v. U.O.I., [1958] SCR828, referred to.

      4. A literal interpretation of R. 3(3) (b), of Seniority Rules would lead
to the result that the Rule only envisages cases where an officer before his         E
substantive appointment officiated in a senior post and does not make any
provision in respect of a situation where an officer is appointed substantive-
ly without having officiated in a senior post prior to that appointment. Thus
construed R. 3 (3)(b) of Seniority Rules would suffer from 'casus omissus'.
                             -                                          [271-F]
      5. Though the Court cannot legislate for 'casus omissus' it cannot             F
so interpret a statute to produce a 'casus omissus' where there is really
none. (272-A]

       6. If R. 3(3) (b) of Seniority Rules is read so as to effectuate the inten-
tion of the rule making authority, then the consideration referred to therein G
which apply in matter of assignment of year of allotment where officer has
officiated prior to date of substantive appointment must necessarily apply
for the purpose of assigning the year of allotment of an officer who is sub-
stantively appointed without being required to officiate. In such a case year
of allotment will have to be determined with reference to the year of allot-
ment of thejuniormost officer directly recruited who offici3.ted continuously H
     264                    SUPREME COURT REPORTS [1995] SUPP. 4 S.C.R.

A in a senior post from a date earlier to the date of substantive appointment of
     the promotee officer. [272-H, 273-A-B]

        7. The expression 'such officiation', in context a promotee officer in
  R 3 (3) (b), will have to be construed as meaning 'substantive appointment'
  in cases where the promotee officer did not officiate in the senior post
B before his substantive appointment. This construction would govern a case
  where the error in matter of promotion is rectified and the promotee
  officer is given substantive appointment from an anterior date and year of
  allotment has to be assigned to him having regard to date from which the
  substantive appointment becomes operative even if he did not officiate in
C a senior post prior to the date of substantive appointment. Even if one
  proceeds on the basis that there is a 'casus omissus' in R 3 (3)(b), it only
  means that the Seniority Rules are silent in the matter of assignment of
  year of allotment of such a promotee officer and in that event the com-
  petent authority can assign the year of allotment to such an officer in
D exercise of its administrative discretion. [273-C-E, G-H)

           Sant Ram Shanna v. State of Rajasthan, [1968) 1 SCR 111, relied on.

           CIVIL APPELLATE JURISDICTION: Civil Appeal Nos. 9337-38
     of 1995.
E
           From the Judgment and Order dated 24.5.93 of the Central Ad-
     ministrative Tribunal, Principal Bench, New Delhi in O.A. No.479 of 1986.

           Prarnod Swarup for the Appellant in C.A. No. 9337/95.

F         V.R. Reddy, Additional Solicitor General, A. Subba Rao and P.
     Parmeswaran for the Appellant in C.A. No 9338/95 & Respondent in C.A.
     No. 9337/95.

          Romesh Gautam, Vishwa Kirti and Ms. Manjula Gupta for the
G    Respondent No. 4.

           The Judgment of the Court was delivered by

           G.B. PATTANAIK, J. Delay condoned .

.H         Leave granted.
               0.S. SINGH v. U.0.l. [G.B. PAITANAIK.J.J                265

       These two applications are directed against the judgment dated A
24.5.93 of the Central Administrative Tribunal in 0.A. No. 479/86, one at
the instance of Union of India and the other at the instance of an employee
Shri 0.S. Singh. Perennial dispute of determining inter se seniority be-
tween a direct recruit and a promotee in the Indian Police Service and the
ticklish issue of year of allotment has cropped up again in these two B
applications. The appellant, Shri O.S. Singh had joined as Deputy Supdt.
of Police on 26.11.1965 after being selected by the State Public Service
Commission. The recruitment to the Indian Police Service is made under
IPS (Recruitment) Rules, 1954, (hereinafter referred to as "The Recruit-
ment Rules"). Under Rule 4 thereof recruitment is made both by competi-
tive examination as well as by pro1notion of substantive n1cmber of a State
                                                                              c
Police Service. Under Sub-Rnle(2) of Rule 6 of the Recruitment Rules, the
initial appointment of person recruited to the service under Clause (a) of
Sub-Rule (1) of Rule 4, shall be in the junior time scale of pay and under
Sub-Rule (3) of Rule 6 the initial appointment of person recruited to
service under Clause (b) of Sub-Rule (1) of Rule 4 shall be in the senior     D
time scale of pay. Thus an officer of the State Police Service on being
promoted is recruited in the senior time scale of pay of the Indian Police
Service. Rule 9 of the recruitment Rules provides that the Central Govern-
ment may on the recommendation of the State Government concerned and
in consultation with the Commission, recruit to the service persons by        E
promotion from amongst the substantive members of a State Police Service
in accordance with such regulation as the Central Government after con-
sultation with the State Government and the Commission from time to time
make. In pursuance of Sub Rule (1) of Rule 9 of the Recruitment Rules,
the Regulation has been framed for appointment by promotion to the
Indian Police Service called the Indian Police Service (Appointment by
                                                                            F
Promotion) Regulation, 1955 (hereinafter referred to as "The Promotion
Regulation"). Under the III rd Proviso to Sub Regulation (2) of Regulation
5 of the Promotion Regulation, a member of. the Stale Police Service is
entitled to be considered for being included in the Select List if he is
continuing in the State Police Service on a substantive basis and has G
completed not less than 8 years of continuous service in the post of Deputy
Supdt. of Police or any other post or posts declared equivalent thereto by
the State Government by the 1st day of January of the year in which the
Committee meets for preparation of the Select List. The Select List which
is approved by the Commission forms the Select list of the members of the H
    266                  SUPREME COURT REPORTS [1995) SUPP. 4 S.C.R.

A State Police Service under Sub Regulation (3) of Regulation 7 of the
  Promotion Regulation. In accordance with Regulation 9 of the said Promo-
  tion Regulation appointmc.nt to the Indian Police Service is made by the
  Central Ciovernn1cnt on the recon1mendation of the State Governn1ent in
  the year in which the names of the members of the State Police Service
B appeared in the Select List, for the time being in force. The name of Shri
  O.S.Singh had not been included in the Select List prepared during 1974
  to 1976, as some adverse remarks were there against him in the C.R. though
  one of his junior in the State Police Service Shri Kali Charan was included
  in the Select List on 12th July, 1974. On a representation being ftled for
  expunction of the adverse remarks, by the appellant Shri O.S.Singh, the
c Government expunged the same on 1.1.1976. Said Shri Singh was allowed
  to officiate against a senior post in Indian Police Service with effect from
  30.8.78 after he was brought on to the Select List in the year 1977. As his
  case had been overlooked for being brought on to the Select List during
  1974-1976 on the basis of certain adverse entries and the adverse entries
D stood expunged by the Government, a Writ Petition was filed in the year
  1984 in Himachal Pradesh High Court seeking mandamus to the State
  Government to re-consider the case of Shri Singh. The said Writ Petition
  was registered as C. Writ Petition No. 661 of 1984. By an interim order
  dated 18.12.1984 the High Court directed that the Competent Authority
E would re-examine the case of Shri 0.S. Singh in the light of the decision
  of this Court in Amar Kant Chowdhmy v. State of Bihm· & Ors., [1984) 2
  SCR 299. The State Government intimated the High Court on 11.3.1985
  that the Selection Committee has re-considered the case of Shri 0.S. Singh
  and necessary recommendation in being made to the Union Government
   for appropriate orders. The High Court, therefore, directed that the final
F decision be taken in the case of Shri O.S. Singh on the recommendation of
   the Selection Committee. On 5th July, 1985, the Standing counsel appear-
  ing for the Union of India intimated the Court that the Government of
   India has taken the decision to appoint Shri O.S. Singh to the Indian Police
   Service with effect from 31.3.1976 and that his seniority will be determined
G accordingly. In view of the aforesaid decision of the Government of India
   the Writ Petition filed by Shri Singh became infructuous and was
   withdrawn with the liberty to approach the Court again, if any part of the
   relief is not finally granted. The Government of India by its letter dated
   23rd July, 1985, intimated Shri O.S.Singh that his year of allotment under
H Rule 3 (3) (b) of the !PS (Regulation of Seniority) Rules, 1954, (hereinafter
                O.S. SINGH v. U.O.I. [G.B. PA1TANAIK, J.]                  267

referred to as "the Seniority Rules") is 1970 and the inter sc seniority of the   A
officers \Vas also indicated therein whereunder Shri Singh was shown senior
to Shri Ash\vini Kun1ar, the respondent No. 4 in Special Leave Petit.ion No.
5394 of 1993. The said respondent No. 4 filed an application before the
Central Administrative Tribunal, Principal Bench, New Delhi, challenging
the aforesaid order of the Government of lndia dated 23rd July, 1985. The
                                                                                  B
Tribunal having quashed the aforesaid order of the Government of India
and having directed to place Shri Ashwini Kumar above Shri Singh in the
Seniority List of JPS officers in the State of Himachal Pradesh , the two
Special Leave Petitions have been filed, as already stated. The Tribunal on
an analysis of the provisions of the Seniority Rules, more particularly Rule
3(3)(b) thereof came to the conclusion that Shri Singh having started             c
continuous officiation in the senior post on 30.3.1978, his year of allotment
must be determined by finding out who was the junior most officer
recruited to the service in accordance with Rule 7 \Vho officiated con-
tinuously in a senior post from a date earlier than Shri Singh. He having
found that Shri Ashwini Kumar was the junior most officer amongst the             D
direct recruits who had officiated continuously in a senior post earlier to
30.3.78, the year of allotment of Shri Singh must be determined according
to the year of allotment of Shri Ashwini Kumar. And as such, the Tribunal
held that it must be 1973. Consequently, the Tribunal held Shri Ashwini
Kumar to be senior to Shri Singh.
                                                                                  E
      Shri Reddy, learned Additional Solicitor General contended that the
Tribunal committed gross error of law in not taking into account the
retrospective appointment of Shri Singh to the Indian Police Service with
effect from 31.3.1976 and determined the year of allotment of Shri Singh
only by taking into consideration his continuous officiation in a senior post F
with effect from 30.3.1978, by literally applying Rule 3(3)(b) of the Seniority
Rules. According to learned Additional Solicitor General lhe case of Shri
Singh having been reconsidered after expunction of the adverse entries in
pursuance to the interim direction of the High Court and the Government
of India having appointed said Shri Singh to the Indian Police Service w.e.f.
31.3.1976, the conclusion is inescapable that his seniority has to be deter- G
mined on the basis that hejs borne in the cadre in the Indian Police Service
with effect from 31.3.1976 and by no stretch of imagination the period from
31.3.1976 till 30.3.1978 can be ignored. Mr. Gautam, learned counsel
appearing for respondent No. 4, Shri Ashwini Kumar, on the other hand
contended that in view of the decision of this Court in Syed Khalid Rizvi & H
    268                   SUPREME COURT REPORTS [1995} SUPP. 4 S.C.R.

A   Ors. etc. v. Union of India & Ors. etc. (Judgment Today (Suppl.) 169), the
    year of allotment of Shri Singh has to be determined in accordance with
    Rule 3 (3)(b) of the Seniority Rules and that being so said Shri Singh
    having continuously officiated in a senior scale of pay in the Indian Police
    Service with effect from 30.3.1978, the Tribunal rightly determined the
    year of allotment of Shri Singh as well as the inter se seniority of Shri Singh
B   and Shri Ashwini Kumar. He further contended that the retrospective
    appointment of Shri Singh to the Indian Police Service with effect from
    31.3.1976 is of no consequence for determining his year of allotment and
    the same has to be determined under Rule 3(3)(b) of the Seniority Rules
    and the Tribunal has not committed any error by holding Shri Ashwini
c   Kumar to be senior to Shri O.S. Singh.

          In view of the rival submissions at the Bar the question that arises
    for consideration is whether the year of allotment of an officer of the State
    Police Services has to be determined in accordance with Rule 3(3)(b) of
D   the Seniority Rules notwithstanding the fact that his case had been ignored
    from consideration erroneously and later on the mistake was rectified and
    he was appointed to the Indian Police Service with effect from an anterior
    date on which date he would have otherwise been entitled to be appointed.
    To appreciate this point at the cost of repetition it would be appropriate
    to notice the admitted facts. Shri 0.S. Singh who was a Deputy Supdt. of
E
    Police in the State Police Service on substantive basis and had completed
    more than 8 years of service by the year 1974 and could have been placed
    in the Select List but for the adverse entries in his C.R. The adverse entries
    having been expunged he had approached the High Court of Himachal
    Pradesh for a direction to the appropriate authorities for re-consideration
F   of his case. The High Court by an interim order had called upon the State
    Government to reconsider his case. The State Government on reconsidera-
    tion recommended for his appointment to the Indian Police Service from
    an anterior date. Finally, the Government of India in consultation with the
    Union Public Service Commission appointed said Shri Singh to the Indian
G   Police Service with effect from 31.3.1976. It is under these admitted facts,
    the correctness of the decision of the Tribunal has to be decided upon. It
    is no doubt, true that in Rizvi'.< case (supra) this Court has observed that
    the year of allotment of an officer who was appointed to the service by
    promotion shall be determined in accordance with Rule 3(3)(b) of the
H   Seniority Rules. But the Court was not faced with a situation as in the case
                    O.S. SINGH v. U.0.1. [G.B. PATIANAIK,J.]                 269

    in hand, where the case of the promotee had been ignored from considera-        A
    tion, and on re-consideration the promotee has been appointed retrospec-
    tively with effect from 31.3.1976. In our considered opinion the Tribunal
    committed gross error in deciding the year of allotment of Shri Singh only
    by taking into consideration his date of continuous officiation in the senior
    post with affect from 30.3.1978 and ignoring the order of the Central           B
    Government on re-consideration appointing Shri Singh to the Indian Police
    Service with effect from 31.3.1976. As has been noticed earlier, under
    Sub-Rule (3) of Rule 6 of the Recruitment Rules, the initial appointment
    of a promotee to the Indian Police Service is in the senior time scale of
    pay. When Shri Singh was appointed to the Indian Police Service with            C
    effect from 31.3.1976 in the eye of law it must be held that he has been
    continuing in the senior post with effect from that date and therefore, his
    seniority vis-a-vis the direct recruits like respondent No. 4 cannot be
    determined by determining his factual officiation in a senior post with
    effect from 30.3.1978. The benefit conferred upon him on reconsideration
    and appointing him to the Indian Police Service retrospectively with effect     D
    from 31.3.1976 .cannot be taken away for the purpose of determining his
    year of allotment and seniority in the cadre. The Central Administrative
    Tribunal, in our considered opinion, Committed error in totally ignoring
    the effect of retrospective appointment of Shri Singh to the Indian ·Police

-   Service with effect from 31.3.1976. Taking this into consideration the
    Central Government rightly determined the year of allotment of Shri Singh
    as well as inter se seniority vis-a-vis the respondent No. 4 Shri Ashwini
                                                                                    E


    Kumar in its letter dated 23rd July, 1985. In fact in A.K Chowdhary's case
    (supra), in somewhat similar circumstances, this Court had directed for
    reconsideration of the case of the promotee and observed that on recon-         F'
    sideration if the employee is selected from any anterior date then he shall
    be entitled to the seniority and other consequential benefits flowing there-
    from.

          Seniority m the Service is governed by the year of allotment. G
    Provisions for assignment of year of allotment are contained in Rule 3 of
    the Seniority Rules. In the Seniority Rules clause (a) of sub-rule (3) of Rule
    3 makes provision for assignment of year of allotment to an officer who is
    appointed to the Service by direct recruitment. The year of allotment. of
    such an officer is the year following the year in which the competitive
    examination (on the basis of which he was recruited) was held. In respect H
    270                   SUPREME COURT REPORTS (1995] SUPP. 4 S.'C.R.

A of officers who are appointed to the Service by promotion provision is
    made in clause (b) of Rule 3(3) which read as under :

            "(b) Where the officer is appointed to the Service by promotion
            in accordance with Ruic 9 of the Recruitment rules, the year of
            allotment of the junior-most among the officers recruited to the
B           Service in accordance with rule 7 of these Rules who officiated
            continuously in a senior post from a date earlier than the date of
            commencement of such officiation by the former."                        •,-

           This provision envisages assignment of the year of allotment to a
C   promotee officer with reference to the year of allotment assigned to the
    junior-most among the officers recruited to the Service by direct recruit-
    ment who had officiated continuously in a senior post from a date earlier
    than the date of commencement of the officiation on a senior post in the
    Service by the promotee officer. In other words, for the purpose of
D   seniority, a promotee officer is treated at par with a directly recruited
    officer who had been officiating in a senior post. This appears to be so for
    the reason that under Rule 6 of the Recruitment Rules the initial appoint-
    ment of a person appointed by way of direct recruitment is in the junior
    time scale while the initial appointment of a person appointed to the
    Service by way of promotion from the State Police Service is in the senior
E   time scale. The governing factor for assignment of year of allotment under
    Rule 3 (3)(b) is, therefore, the continuous officiation in a senior post by a
    directly recruited officer as well as the promotee officer.

          In service jurisprudence a distinction is made between a "substantive
F   appointment"' and an "officiating appointment". While substantive appoint-
    ment confers on the person so appointed a substantive right to the post,
    an officiating appointment does not confer any such substantive right. The
    appointment on officiating basis is usually made when the incumbent
    substantively holding that post is on leave or when the permanent post is
G   vacant and no substantive appointment has yet been made to that post.
    Such an officiating appointment comes to an end on the refurn of the
    incumbent substantively holding the post from leave in the former case or
    a substantive appointment being made to that permanent post in the latter
    case. An appointment on officiating basis, is from the very nature of such
    employment, itself of a transitory character and, under the ordinary law of
H   master and servant, is terminable at any time. (See : Parshotam Lal Dhingra
                 O.S.SINGH v. U.0.l.[G.8.PATIANAIK,J.]                      271

 v. Union of India, 11958) SCR 828 at p. 841-842). The expression "Officiated      A
 continuously in a senior post" in Rule 3(3)(b) of the Seniority Rules must,
 therefore, be construed to mean holding a senior post on officiating basis
 prior to substantive appointment on such senior post. Since a person
 cannot be treated as officiating on a post after he has been substantively
 appointed on that post, the said expression cannot be construed as refer-
                                                                                   B
 ring to the period of officiation subsequent to the date of substantive
 appointment. For ascertaining the period of continuous officiation on a
 senior post, which is required to be taken into consideration for the
 purpose of assigning the year of allotment to a promotee officer, ·Rule
 3(3)(b) has to be read with Explanation I wherein it has been prescribed
 that in respect of an officer appointed to the Service by promotion for the       C
 purpose of determination of his seniority the period of his continuous
 officiation in a senior post shall count only from the date of the inclusion
 of his name in the Select List, or from the date of his officiating appoint-
 ment to such senior post which-ever is later. Thus two conditions are
 required to be fulfilled : (i) inclusion of the name in the Select List           D
 prepared for the purpose of promotion under the Recruitment Rules and
 Promotion Regulations; and (ii) Continuous officiation on a senior post.
 Explanation I postulates that both these conditions must co-exist for a
 promotee officer to take the benefit of continuous officiation in a senior
 post from the date prior to the date of his substantive appointment.
                                                                                   E
         But there may be a situation when a person is appointed to the
  Service by promotion without his having officiated on a senior post prior
  to his substantive appointment. How is the year of allotment to be assigned
  to such an officer? A literal interpretation of Rule 3(3)(b) of the Seniority
  Rules would lead lo the result that Rule 3(3)(b), when it talks of continuous    F
  officiation in a senior post, only envisages cases where an officer before his
  substantive appointment to the service has officiated in a senior post and
  it does not make any provision in respect of a situation where an officer is
· appointed substantively to the service without his having officiated in a
  senior post prior to his substantive appointment to the service. In other        G
  words, Rule 3(3)(b) suffers from 'casus omissus'. Before we reach this
  conclusion it may be pointed out that judicial decisions reveal two trends.
  One view, which reflects the traditional approach, is that the Court cannot
  legislate for casus omissus and that if there is a gap or an omission in the
  statute the lacuna cannot be supplied by the Court by judicial construction
  and that it is for the law making authority to remove the defect. (See : Smt.    H
    272                  SUPREME COURT REPORTS [1995] SUPP. 4 S.C.R.

A Hira Devi and Ors. v. District Board, Shahjalwnpur, [1952] SCR 1122 at p.
    1131, and Nalinakhya Bysack v. Shyamsw1de1; [1953] SCR 533 al p.545).
    Here also the approach is that the Court cannot so interpret a statute to
    produce a casus omissus where there is really none. (See : Tiie Me1sacy
    Docks & Harbour Board v. Penbusan Brothen, (1885) 13 A.L. 595 at p. 602;
    State of Kamataka v. Union of India, [1978] (2) SCR 1 at p. 65. The other
B
    view has been thus put forward forcefully by Denning, L.J" as the learned
    Master of Rolls then was in Seaford Cowt Estates Ltd. v. Aslw; [1949] 2
    All E.R. 155 :

            "When a defect appears a judge cannot simply fold his hands and
c           blame the draftsman. He must set to work on the constructive task
            of finding the intention of Parliament and then he must supplement
            the writlen words so as to give 'force and life' to the intention of
            the legislature. A judge should ask himself the question how, if the
            makers of the Act had themselves come across this ruck in the
            texture of it, they would have straightened it out? He must then
D           do as they would have done. A judge must not alter the material
            of which the Act is woven, but he can and should iron out the
            creases." (p. 164)

         Again in Magar & St. Mel/ans Rural Dist1ict Council v. Newport
E   Corporation, [1951) 2 All E.R. 1226, the learned Judge has said:

            "We sit here to find out the intention of Parliament and of ministers   ,
            and carry it out, and we do this better by filling in the gaps and
            making sense of the enactment than by opening it up to destructive
            analysis." (at. 1236)
F
           Although the said views of Lord Denning have not been approved
    by the House of Lords in Magar & St. Mellons Rural Disflict Council, [1951]
    2 All E.R. 839, they have been referred to with approval by this Court. (See
    : State of Bihar v. A.K. Muk/1e1jee, [1975 (2) SCR 894 at p. 902; State of
G   Kamataka & Anr. v. M/s. Hansa Corporation, [1981] (1) SCR at p. 833).
    The observations of Viscount Simonds in the House of Lords disapproving
    the observations of Denning, L.J. referred to above, have also been
    referred to with approval in Punjab Land and Development Co1poration v.
    Presiding Officei; Labour Cowt, [1990] (3) SCR 111 at p. 153-154.

H         If Rule 3(3)(b) is so read as to effectuate the intention of the rule
                O.S. SINGH v. U.0.1. [G.B. PATfANAIK, J.]                 273

making authority then the considerations referred to therein which apply         A
in the matter of assignment of year of allotment in cases where an officer
has officiated prior to the date of his substantive appointment, must
necessarily apply for the purpose of assigning the year of allotment of an
officer who has been substantively appointed without being required to
officiate. In such a case his year of allotment will have to be determined
                                                                                 B
with reference to the year of allotment of junior-most among the officers
directly recruited to the service who officiated continuously in a senior post
from a date earlier than the date of substantive appointment of the
promotee officer. For that purpose the expression "Such officiation" in the
context of the promo tee officer in Rule 3(3)(b) will have to be construed
as meaning "substantive appointment" in cases where the promotee did not         C
officiate in.a senior post before his substantive appointment to the service.
The said construction would also govern a case, like the present one, where
an officer has been wrongly denied promotion to the service and the said
wrong is rectified later by the competent authority by appointing the officer
who was denied promotion with effect from the date on which he should            D
have been so appointed by way of promotion. Such an officer may have
officiated in a senior post prior to the passing of the order of substantive
appointment but he may not have officiated in a senior post prior to the
date from which he has been substantively appointed. Once. the error in
the matter of his promotion is rectified and he has been given substantive
appointment from an anterior date on which he should have been                   E
promoted the year of allotment has to be assigned to him having regard to
the date from which his substantive appointment becomes operative even
though he did not officiate in a senior post prior to the said date of
substantive appointment. His year of allotment cannot be depressed on the
basis that the had started officiating on a senior post from a date later        F
than the date with effect from which he has been substantively appointed
to the Service.                                                             •

      We arrive at the same result if we proceed on the basis that there
is a casus omissus in Rule 3(3)(b) in the matter of assignment of year of        G
allotment for an officer appointed by promotion who has not officiated
prior to his substantive appointment to the Service and the said omission
cannot be filled by the Court by judicial interpretation. This would only
mean that the Seniority Rules are silent in the matter of assignment of year
of allotment of such a promotee officer. In that event the competent
authority can assign the year of allotment to such an officer in exercise of     H
    274                   SUPREME COURT REPORTS [1995] SUPP. 4 S.C.R.

A its administrative discretion. (See : Sall/ Ram Shanna v. State of Rajastha1~
    [1968) (1) SCR at p. 119). The order dated July 23, 1985 passed by the
    Central Government assigning the year of allotment to Shri O.S. Singh has
    to be treated as passed by to Central Government in exercise of its
    administrative discretion. The only question that would arise in respect of
    such an order is whether in the exercise of its administrative discretion the
B Central Government has acted arbitrarily. Having regard to the facts and
    circumstances of the case, it is not possible to take the view that in the
    matter of assignment of year of allotment of Shri O.S. Singh the Central
    Government has acted arbitrarily. The Central Government appears to
    have followed the scheme underlying Rule 3(3)(b) and has assigned the
C year of allotment on the basis of the date on which the substantive appoint·
  . ment of Shri O.S. Singh become operative keeping in view the year of
    allotment of the junior-most directly recruited officer who officiated con-
    tinuously in a senior post from a ·date earlier than the date of such
    substantive appointment of Shri O.S.Singh.
D          In view of our conclusion, as aforesaid, the impugned judgment of
    the Central Administrative Tribunal is set aside and the year of allotment
    as well as inter se seniority between Shri Singh and Ashwini Kumar, as
    determined by the Central Government in its letter dated 23rd July, 1985,
    is restored. It must be held that the year of allotment of Shri Singh is 1970
E   and he is to be treated senior to Shri Ashwini Kumar. Both these appeals
    are acc'?rdingly allowed and in the circumstances with no order as to costs.

    I.M.A.                                                     Appeals allowed .




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