STATE OF PUNJAB versus JOGINDER SINGH

2S.C.R.

STATE OF PUN.JAB v. JOGINDER SINGH

(B. P. SINHA, C. J., K. SuBBA RAo, K. N. WANCRoo, J.C. SHAH and N. RAJAGOPALA AYYA?\'GAR, JJ.)

Equality of Opportunity-Puhlic Employment-State Cadre of teachera-Provincia!ised cadr. formed of DistricJ Board teachers-Equal pay srales and allowances-Difference in oppor-tunity of promotion-I/ discriminatory-Power of Government to constitute parallel services-Punjab Educational Service (Provincialised Cadre) Cta..s Ill Rules, 1961, rr. 2, .1-Constitu-tion of India, Arl8. 14, 16.

Of the •junior teachers' in the Punjab State cadre 15% were put in the "middle scale" and 85% in the "lower scale". From Qctoher 1, 1957, the junior teachers in the District Board and Municipal Board schools were made Government employees and formed into "Provincialised Cadre". They were divided into Hmiddle scale" and "lower scale" in the same proportion and were given the same scales of pay as th,. teachers in the two scales in the «State Cadre". The Government decided to keep the two cadres distinct and made the Punjab Educational Service (Piovincialised C'!dre) Class III Rule;, 1961, which laid down the manner in which promotions in the two cadres from the lciwer to the middle grades were to be made. These Rules were made effective from October I, 1957. These Rules made the Provincialised Cadre diminishing class by providing that no further recruitment would be made to it and that all vacancies occuring therein would be transferred to the State Cadre. The result was that those recruited to the State Cadre had progressively larger chance of getting into the selection grade of that cadre than the corresponding member of the Provincialised Cadre. 1~hc respondent, lower scale teacher of the Provincialised Cadre, contended thttt there was com-plete integration of all the junior teachers, that the Rules violated Arts. 14 and 16(1) of the Constitution as they dis-criminated between the two cadres in respect of the opportunity of promotion to the middle scale and that the State could not consistently with Art. 14, constitute two parallel services con-sisting of employees doing the same work but subject to differ-ent conditions of service.

Held, (per Sinha C. J., Wanchoo and Ayyangar, .JJ., Subba Rao, and Shah, lJ., disseming) ihat the Rules did not violate Art. 14 or Art .. 16. The two Services started as jndependen t

Novmoln, 16,

1962 S11111 of l'vf!i•b ·•· lopd.r Silfth

services and the Government never integrated them into one service. They started dissimilarly and they continued dis-similarly and the dissimilarity in their treatmeni by the Rules was not denial of equal opportunity. The two distinct cadres existed independently of the Rules. The question of denial of equal opportunity could ari•e only as between members of the same class. Further, it was open to the Government to constitute two distinct services of employees doing the same work but subject to different conditions of service. The assump-tion that equal work must -receive equal pay was not correct. Nor was it correct to say that if there was equality in pay and work there must be equality in conditions of service.

Kisliori Mohanla7 v. Unirm, A. I. R. (1962) S. C. 1139, relied on.

Per Subba Rao, and Shah, JJ.-The Rules in so far as they provide for differential treatment between the members of the State Cadre and the Provincialised Cadre in the matter of promotion are invalid. Though there were two Cadres they were differentiated only for purposes of future promotions. There was no valid basis for classification so as to justify differential treatment between their members inter "' for the purposes of promotion. The Government in fart having given the same terms of employment to the two Cadres and having in cll"ect constituted . single grade of teachers, the disrrimination bet· ween the members of that grade based merely on the source of recruitment cli:arly infringed Art. 16(1) and (2).

General Manager So!llMrn Rly. v, Rangachari, [1962] 2 S.C.R. 586. All India Station Maater•' And .. istant Station Masters' A38ociation v. General Manager, C.R. [1962] 2 S.C.R. 311 and Kishori Mohan/al Bakshi v. Uuion of India, A. I. R. (1962) S. C. 1139, referred to.

CmL APPELLATE JURISDICTION : Civil Appeal

No. 388 of 1962.

Appeal by special leave from the judgment and order dated October 3, 1961, of the Punjab High Court, Chandigarh in Civil Writ Petition No. 1559 of 1960.

0. K. Dapht,ary, Solioitor General of India,

L. D. Kaushal, Additional Advooate-General, Punjab, N. 8. Bindra and R.H. Dhebar, for the appellant. 0. B. Agarwal.a a1Jd A. N, Goyal. for the ~­pondent.

2 S.C.R.

1962. November 16. The Judgment of Sinha, C. J., Wanchoo. and Ayyangar, JJ., was delivered by Ayyangar J. The Judgment of Subba Rao and Shah, lJ., was delivered by Shah, J.

AYY.ANGAB, J .-This is an appeal by special

leave against the judgment . of the High Court of Punjab dated October 3, 1961. That.Judgment was rendered in petition under Art. 226 of the Con-stitution filed by the respondent-:Jogendra Singh and by their order allowing the said petition in part, the learned Judges struck down r. 2 (d) & (e) and part of r. 3 of the Punjab Educational Service (Provincialised cadre) Class III Rules 1961, which for convenience we shall call the impugned Rules, on the ground that those clauses were violative of the rights guaranteed by Art. 14 & Art. 16 (I) of the Constitution.

Certain facts have to be stated in order to appreciate both the manner in which the question was raised as well as the decision of the learned Judges now under appeal.

The respondent was before October J, 1957,

working as "Junior vernacular teacher" in District Board High School in District Hoshiarpur. The points in controversy in this appeal turn on the precise changes which were effected in the status and conditions of service of teachers like the respon-dent employed .in District Board and Municipal Board Schools by certain executive instructions issued by the Punjab Government in September 1957, to take effect from October I, 1957, by reason of which these teachers became State employees, but before proceeding to the details of these changes, it would be convinent to set out the position and conditions of service of teachers employed in Stat!'! schools which prevailed Oil that date.

IH2 S.I' of PratJtd •• l•,W1r SU.,A

S11Jt1 of Pu•jab v. Jo1indl1 Sing/a .A.nan1•, J.

At that date teachers in State employ were governed by· rules framed under Art. 309 of the Con· stitution which had been promulgated on M;ay 30, 1957. These rules were entitled "The Puajab Educational Service Class III School Cadre Rules, 1955". We shall have occasion to refer to these Rules in detail after narrating the facts which have given rise to the present appeal. For the present it is sufficient to state that these rules prescribed_ inter alia the qualification for appointment, the recruiting authority, the conditions of service and seniority inter se of members of the Service. The appendices to these rules specified the scales of salary to which teachers falling within the various grades which were specified would be entitled. The scales of pay of these State teachers were revised as as result of the acceptance by government of the recommendation of committee for pay revision and under an order of government dated July 23, I9i;7, "junior teachers" in the State service, the class of officers with whom we are now concerned were split up into .three grades: (a) Head Masters, (b) those in the middle scale, and ( c) those in the lower scale. This Government order fixed the percentages of the teachers to be comprised in each group. It would be seen that so far as Head Masters were concerned, there could be no definite ·number because that depended upon the number of schools in which they could function but for teachers other than Head Masters i. e., 'in what has been termed "the junior teacher grade", 15 per cent of the total strength of junior teachers were put in the "middle scale" on salary scale of 120-5-175 and this percentage included the head masters also though they were on still higher scale of salary, while the rest of the 85 per cent were to be in the "lower scale" on salary scale of 60-4-80/-5-100/5-120. This govern-ment order further directed : "Fifteen per cent of teachers in t. his group should straight. away be pro-.moted to the IJ)idclle class by selection basecl on

2 S.C.R. SUPREME COURT REPORTS 173

seniority and merit while the rest should be given the lower scale". These were the rules governing the category called "junior teachers in the State Cadre" on October 1, 1957.

By an Executive instruction dated September 27, 1957, (to be effective from October 1, 1957), in the form of communication from the Secretary to the Education Department of the State to the Director of Public Instruction, change was made in the terms and conditions of service of teachers in the District Board and Municipal Board Schools. It might be mentioned that the executive action was later ratified by legislation in 1959 which was to have retrospective effeet from October 1, 1957, but as nothing turns on the terms of this enactment relevant to the points in controversy before us, it is not nece-ssary to make any further reference to it. As the decision of this appeal hinges on the proper construc-tion and the legal effect of the "Provincialisation" effected by this executive direction, it would be necessary to scrutinize its terms with reference to the then existing state .of circumstances in some detail. But to this we shall revert little later, but will at the present stage be content to mention that under this order the· schools theretofore run by Municipal Boards and District Boards in the Ambala and Jullundur Divisions were taken over by the Education Department of the Punjab Government with effect from October 1, 1957. The teachers then employed in these schools were also taken over, becoming State employees. The order recites that on October 1, 1957, there. were, in the class of"junior teachers" in the schools taken over with whom we are concern-ed, 20709 teachers. Applying to them the same proportion of 15 : 85 of "lower" and "middle" class which applied to junior teachers in the State cadre dealt with hi the government order dated July 23, 1957, 3184 teachers were placed in the higher grade entitled to the higher emoluments and 17525 in the

$1011 of P .. ja6 v. Jo1indtr SU.,h

.4y)Wn1•r1 /.

1962 s1111 ef PriU•6 v. lo1U.d1r Sin1h

"lower" grade drawing the minimum salary open to junior teachers. This order also stated generally that the junior teachers employed in Local Body Schools which were being "provincialised" would be given "the same grades of pay and other allow-ances as were given to their counterparts in govern-ment employment."

It is in evidence that subsequent to October 1, 1957, the government had under consideration three questions:

(1) whether the "provincialised" teachers had

to be kept in cadre separate and distinct from the cadre of teachers in the State cadre or whether the two cadres were to be integrated into one; (2) if they were to be integrated, how their inter 86 seniority was to be determined; (3) if they were not to be integrated, what was to be the relationship between the teachers in the two cadres and similar allied questions.

The conclusions which the government arrived at were published arid given effect in the form of letter dated Ja.mary 27, 1960, from the Secretary to the Government, Punjab, to the Director, Public Instruction, Punjab, Briefly stated, the decision was that the two cadres-of "provincialised" teachers and teachers in the State cadre-were to be kept distinct, and principles were formulated according to which promotions in the two cadres from the lower to the middle grade were to be determined. It is the validity of the terms of this decision that is challenged in this appeal by the respondent. The decision. and directions contained in it were given effect to in the case of all employees belonging to the "provincialised" schools and thereupon the resPondcnt filed the petition under Art. 226 impu-gning the Constitutionality of this direction on various grounds. One of these grounds was that

2 s.c.R. SUPREME COURT REPORTS

the direction contained in this communication dated January 27, 1960, did not have any statutory force since the same was not and did not purport to be rule framed under Art. 309 of the Constitution. To obviate this objection the Government of the Punjab promulgated the Punjab Educational Service (Provincialised Cadre) Class III Rules, 1961, on February 13, 1961. These rules conformed to the formal requirements of Art. 309 but were otherwise in the same terms as and operated in the same manner and from the same date as the impugned directions of January 1960. The petition by the respondent before the High Court was therefore converted into one challenging the constitutional validity of the Rules of February, 1961 instead of the government communication of January 1960.

The arguments in support of the challenge to the validity of these rules could briefly be formulated thus: On the provincialisation of the District Board and the Municipal Board Schools on and from October 1., 1957, all the teachers there-tofore serving in these schools became the employ· ees of the State. On the date when they attained this status there were teachers in schools run by the State who were governed by the rules published in May, 1957, with the scales of pay and grades revi~ed under the orders of July 23, 1957. Whether or not the goverment had the power to keep these "provincialised" teachers, in separte category, the goverment did not do so but by the orders that they passed on September 27, 1957, they were granted the "same grades and scales of pay and other allowances" as those applying to the teachers in the then State cadre. This ·necessarily implied complete integration of the. two cadres with the result that the two became single class of teachers and thereafter the fact that the "provincialised" teachers had been previously employed in District Board or Municipal Board Schools and not in

1!162 Stak of l'u•Jd y. Jo1irui" Sir11h A1Janpr1 J.

i962 St•t,./ Punjab v. Joginder Singh ..1,,..,.,, J.

1 '76 SUPREME COURT RE:PO.RTS [1963] SUPP.

schools run by the State was merely of historical interest and carried no legal significance. Any later order of government therefore which drew any distinction between the class of "provincialised" teachers and teachers in the State cadre to the prejudice of the former was discriminatory and void under Art. 14 of the Constitution. As all the schools as and from October 1, 1957, were being run by the State, all teachers employed in them, whatever their previous history, belonged to the same class, since they performed the same functions, were entitled to the same salaries and had as such to be governed by the same rules and conditions of service. On this basis it was urged that the impugn-ed rules discriminated against the "junior teachers" in the "provincialised" cadre in two ways : (1) as regards their right or opportunity to obtain promo-tions and proceed to the "middle" scale, and (2) dis-parity in the rules relating to pension. It was contended that the discrimination. as regards promo-tions was violative of Art. 16 (1) and that as regards pension on tqe broader ground of an irrational classi-fication violating Art. 14. The learned Judges of the High Court acceded to the prayer of the respon-dent as regards the first objection in these terms :

"The 1961 rules in so far as the same create two cadres of persons in the same service and in so far as the same create inequality of oppor-tunity for promotion in between the two cadres by providing the formula of promotion are void rules and in particular those rul~s are No. 2, in so far as it relates to the definitions of two cadres, and No. 3, in so far as it provides for the effect of two cadres on the matter of promotion in the same."

but they rejected that in re~pect of pension on being

satisfied that Art. 14 was not violated in that·regard. It is from this judgment .that the State has preferred this appeal with special leave.

2 S.C.R. SUPREME COURT REPORTg

This will be convenient stage where we might sununarise briefly the provisions of the impugned rule and their impact on the right to promotion of the respondent and the other "junior teachers" of the "provincialised" service to which he belongs. Before however, doing so it is necessary to mention pre-liminary objection that was taken to the hearing of the appeal. Along with the. respondent Jogindra Singh there were three others who had filed similar petitions and sought the same relief. Writ Petitions 161 and 162 of 1961 were by "junior teachers" like the responpent, while Amrik Singh petitioner in the remaining petition (Petition 163of1961) was Head Master among the "provincialised" teachers. All the four petitions were dealt with together and were disposed of by common judgment so that relief accorded to Jogindra Singh the respondent before us in Writ Application 1559 of 1960 was also granted to the other three petitioners. The State however has preferred no appeal against the orders in the other three petitions, and Mr. Agarwal, learned Counsel for the respondent, raises the contention that as the orders in the other three petitions have become final, any order passed in this appeal at variance with the relief granted in the other three petitions would create inconsistent decrees in respect of the same matter and so we should dismiss the present appeal as incompetent. We, however, consider that this would not be the legal effect of any order passed by the Court in this appeal and that there is no merit in this objection as bar to the hearing of the appeal. In our opinion, the true position arising, if the present appeal by the State Government should succeed, would be that the finality of the orders pass-ed in the other three writ petitions by the Punjab High Court would not be disturbed and that those three successful petitioners would be entitled to retain the advantages which they had secured by the decision in their favour not being challenged by an appeal being filed. That however would not help

1962 Stat1 of i'wljab v. Jo1ind1r Sinzlt Ay.,.,,gar, J.

1962 St•lt •! l'u•jd v. Jotind•r Sin1A ~_,,,,,,.,, J,

the present respondent who would be bound by our judgment in this appeal and besides, so far as the general law is concerned as applicable to everyone other than the three writ petitioners (who would be entitled to the benefit of decisions in their favours having attained finality), the law will be as laid down .by this Court. We therefore overrule the preliminary objection.

The impugned rules are entitled "Punjab Eduf'ational Service (Provincialised Cadre) Class III Rules, 1961" and they were deemed to have come into force from October 1, 1957 i. e.; the date when the "pr.ovincialised" cadre was formed. Rule 2 con-tains the definitions and of these those relevant to the present context, which have been struck down by the High Court in their jugdment under appeal are cls.(d) & (e) which respectively define the word "Service" as meaning "The Punjab Educational (Provincialised Cadre) Class III Service" and cl. (e) defining 'State Cadre' as meaning "The Punjab Educational (State Service) Class III (School Cadre)". Rule 3 with which Part II headed 'Conditions of Service' starts is the vne which is. the most relevant for the points arising in this appeal. It reads :

3. Number and character of posts :-

( 1) The service shall comprise the posts shown in Appendix 'A' but shall be diminishing one. The number of posts in various cadres of the Service shall be regulated in the following manner:-

(i) All the posts created for any provinci-

alised si:l.t>ol subsequent to its being taken over by the Government, whether on account of its being upgraded to higher ~taJ)dard, removal of congestion tW,rein

2 s.c.R. SUPREME COURT REPORTS

or for any other purpose shall not consti · tute part of the Service but will be borne on the State Cadre or such other Educa· tional State Service as may comprise similar posts at the time of their creation.

(ii) (a) All such posts of Headmasters as well as of Masters or Teachers, in selection grades of the Service, as were vacant on October 1, 1957, shall continue to be borne on the Service but an equal number of posts in ordinary pay scales in the rele· vant cadres of the service falling vacant as result' of promotion to the posts of Head· masters, Masters and Teachers in the selec-tion grade shall be transferred to the Sete Cadre.

(b) All such posts of Masters and Teachers, in ordinary pay scales of the Service, as were vacant on October 1, 1957, shall be transferred to the State Cadre.

(iii) The posts in various cadres of the service falling vacant due to the normal incidence of promotions, retirements or any other cause subsequent to the date of provincialisation of local authority schools shall be adjusted in the following manner:-

(a) All vacant posts of masters as well as

of Junior Teachers in the Service shall be separately split up into blocks of seven and six posts by rotation. All selection grade posts in the first six vacancies in each block of seven and first five vacancies in each block of six shall continue to be borne on the Service but an equal number of postJ in ordinary pay-scales of Masters or

1962 S"'lf •f P .. fa! v. lo1ittdn Siogl ..1,, .. ,.,, J.

Stal• of Pu'liab y. logind11 Singh ... ,,.,"'' J.

Junior Teachers as the case may be, together with other vacancies in ordinary pay-scales in each block shall be transferred to the State Cadre. The last vacancy in each block shall be transferred to the State Cadre:

Provided that if the last vacancy in the block is not in the selection grade one other post in the selection grade from with-in that block shall be transferred to the State Cadre, and if adjustment within the same block is not possible it shall be made in the next following block but in no case in any block thereafter :

...................................................

The other rules which have some materi-ality are rr. 4, 5, 8 and 9 and we shall set out the relevant portiom of these :

"4. Liability to transfer: Members of the Service who are borne on statewise cadre may be posted in any Government or pro-vincialised school throughout the State and members of the Service who are borne on district-wise cadre may be posted in any Government or provincialised school throu-ghout that district. ................. "

"5. Confirmation: Members of the Service who were confirmed prior to the provinci-alisation of local authority schools shall be deemed to have been confirmed in the Service:

...................................................

"8. Method of Recruitment : (I) Posts in Selection grades left over after the transfer

of posts to the State Cadre as specified in rule 3 shall be filled by promotions from lower grade of the Cadre :

Provided· that no member shall be pro· moted to selection grade of the Service un· less he possesses the qualifications and experience as specified in Appendix 'B'.

The only thing to be noted in regard to the qualifications set out in the Appendix 'B' as regards "junior teachers" with whom alone we are concerned is . that for appointment to the selection grade (Rs. 120/175) they were not required to be matricu-lates this being minimum qualification prescribed by the rules under the State Cadre, but it was suffi· cient if they were "junior trained" or "junior basic trained" or "special certificate teachers" with five years teaching experience in which case they were elig~ble to·be appointed to the "selection" grade.

"r. 8(2)

All promotions, whether from one

grade to another or from one class of service to another, shall be made on the basis of seniority-cum-merit and no person shall .be entitled to claim promotion on the basis of seniority alone",

Rule 9 lays down how the inter .se seniority of mem· hers 'of.the service shall be determined as on October 1, 1957.

We shall briefly summarise the effect of these

provisions on the class of "provincialised" teachers: ( 1) They were treated as falling under cadre sepa-rate and clistinct from teachers in the State cadre governed by the .rules promulgated on May 30, 1957. (£) Though the proportion of selection grade teachers to the total 'strength, viz., 15 : 85 was the same in both the cadres, it operated differently as regards the

SUII• •f P1111ju v. J•z"'"' so.1h

1962 Stal1 of Punjab v. Jogini1r Singh Ayyangar, J.

members in the two services. This was due to the fact that the government decided that the "provin-cialised" teachers were to be diminishing class to become extinct in course of time, whereas number equivalent to that which the provincial cadre Jost was added to the State cadre. When the provincialisation of Local Board and Municipal Board teachers was effected by the Government Order of September 27, 1957, there were, as we have pointed out, 20709 "junior teachers" of whom, by applying the 15 per cent rule, 3184 were to be in the "sell!'ction grade" drawing the higher salary, while the rest of the 17,525 were in the ordinary or the "lower" scale. The corresponding figures for the State Cadre teachers on the same day, i. e., October I, 1957, was 107 of whom 15 per cent would have been in the selection grade. The "provincialised" cadre being marked out for extinction, there was to be no further recruit-ment to that cadre and became, so to speak, closed at one end. All vacancies arising by retirements, deaths etc. in the. provincialiscd cadre were to be replenished by direct recruitment to the State Cadre. The consequence of this would naturally be that the selection grade of 15 per cent in the State Cadre would be progressively increasing in strength which was determined by the total cadre stren~th, while the selection. grade in the "provincialiscd' cadre would be progressively decreasing in strength for the con· verse reason. As the cadres were kept separate the result would be that those recruited to the State Cadre would have progressively larger chance of getting into the "selection" grade of that cadre than the corresponding member of the "provincialis· ed" service. Thus member of the State cadre who possessed the minimum educational qualifications required for appointment to the selection grade and also the minimum service prescribed as qualification therefor stood better chance of promotion to the selection grade than did teacher of the "~ei· alised" cadre getting into the selection grade of his

2 S.C.R. SUPREME COURT REPORTS

cadre. The rigour of this rule was, however, greatly tempered by the division into blocks under r. 3 itself by reason of which roughly 11/13 of. the total vacancies in the selection grade were directed to be filled by "provincialised" teachers leaving only the balance for those in the State Cadre. It is the dis-parity in the chances of promotion existing between the members of the State cadre and the teachers in the "provincialised" cadre that ha:l been held to be discriminatory and violative of Arts. 14 and Hl(l) of the Constitution by the learned Judges of the High Court. The summary of .the rules that we have given earlier would show that this disparity has been caused (a) by the impugned rule treating the "provin-cialised" teachers as belonging to cadre different and distinct from the teachers in the State cadre and not providing for any inter-se seniority as between the two groups, and (b) the "provincial ised" cadre being diminishing cadre to be extinguished in course of time, the State cadre being selected for expansion and perpetuation by becoming the sole cadre in which recruitment for vacancies could take place. The reason why we are stating the position in this form is that though the learned Counsel for the respondent based his argument to sustain the plea of violation of Arts. 14 and 16(1) on the "division" of the two services as distinct cadres whereas in law they were one and ought to have been so treated, the "provin-cialised" teachers could have had no complaint if theirs was not made vanishing cadre, for if the two services had been kept uistinct and the vacancies in each filled up so as to replace the loss in the strength of each cadre, there would have been no scope for any complaint of discrimination.

The main basis upon which the learned 11dges of the High Court have rested their Judgment is that the order dated September 27, 1957, which wa~ brou· ght into force on October 1,1957, by which the teach-ers in the erstwhile District Board and Mu 'cipal

1962 Stal• •f Pajd v. Jo1i11i1r s;.,h ,_,,.,.,.,, J.

St•te of Punj•h v. Joginder Si,,1h bJO"gar, J,

Board schools were "Provincialised" and made State employees, effected complete integration of these teachers with the then existing members of the State Educational Service governed by the rules of May 30, 1957. It would be manifest that unless this step were established there could be no basis for the contention that the impugned rules which procedcd on the basis that the Provincialised teachers were not in the State cadre violated Art. 14 or Art. 16(1). The first step in the enquiry has therefore to be whether this order of September 27, 1957, effected complete integra-tion between the two services. This question can, in our opinion, be solved not by hypothetical or theore-tical considerations but by careful examination of the terms of the order dated September 27, 1957, with view to find out whether such result was intended to be or was brought about. The justification for this observation of ours is because of the line of argument addressed to us by learned Counsel for the respondent. He submitted that there might have been differences in the qualifications of persons entitled to he recrui-ted as teachers in the erstwhile Board schools as compared to the qualifications to be possessed by or the machinery set up to recruit teachers in the State cadre. When once the "provincialisation" took place, the argument ran, they became teachers emplo· yed directly by the State, the schools in which they were formerly employed having been taken over by the State. Under the order ·dated September 27, 1957, their pay-scales were rendered the same as those applicable to teachers in the State cadre. Besides, they could be transferred to State schools and teachers in the State cadre transferred to work in former Board schools, i. e., there was complete interchangeability so far as posts were concerned. If, it was contended, they did the same work, drew the same pay as the teachers in the State cadre and the members of the two Services were freely liable to transfer inter se nothing more remained to effect complete integration. In further reinforcement

2 s.c.R. SUPREME COURT REPORTS

of this submission reliance was placed on paragraph of the memorandum of September 27, 1957, under which these teachers were taken over into State employ which ran :

"All the incumbents of the Local Body schools to be provincialised with effect from the 1st of October, 1957 will be given the same grades of pay and other allowances as are given to their counterparts already in government employ. Their pay will be fixed under the rules and there will be no drop in their present emoluments."

and from all this it was urged that 11.-complete in· tegration of the two services was intended to be and was brought about from and after October 1, 1957. Besides the above there was subsidiary argument that consistently with Art. 14 the State could not create or maintain two parallel services of employees for doing the same work but with differences either in their emoluments or in their conditions of service. This however was on the basis that the submission about complete integration having been effected was not acceptable, and so we shall consider this further argument later.

We shall now proceed to examine the primary

contention, viz., that there was complete integra· tion of the two Services by the Government order which-had effect from October I, 1957, and that it was the impugned rules which brought about division of this united or unified service by the crea· tion of two new cadres with differences between members of the Service based on no inteliigible diffcrentia which was violative of Art. 14, and as the same adversely affected the chances of promotion of the "provincialised" group vis-a-vis the State Cadre teachers infringed Art. 16 (1).

We do not find, it possible to accede to the contention. that the .memorandum dated September

Stat1 of l'urtjGi ,,,;,,.4,, ~. su.,. Ayyaa1ar, J.

1961 St•f1 of Punjab v. Jotinthr Sittgh Ayµngaf, J.

186 SUPREME COURT MPORTS [1963) SUPP.

27, 1957, integrated the "provincialised" teachers with the teachers governed· by the Punjab (Educational Service) Class III School Cadre Rules, 1955. In the first place, it is conceded that the rules as to pension applicable to the State cadre employees are not applicable to the "provincialised" teachers. The Government framed rules as regards the pension of the "prpvincialised" teachers in October 1958, which were distinct and different from the Pension Rules applicable to teachers in the State cadre. complaint was made on this score by the respondent in his petition before the High Court but the same was rejected and there has been no appral from that portion of that order. It must also be pointed out that the pension of the State Cadre teachers is determined by para. 11 of the Class III School Cadre Rules, 1955 and it is common ground that the said provision does not govern the conditions and qµan· tum of pension of the "provincialised" teachers.

(2) The inter se seniority of members ofthe

State Cadre Service is determined by r. 9 of the Rules which contain elaborate provisions for its determination. The first paragraph of the rule runs 1

"The semor1ty inter ae of the members of the Service holding the same class of posts and in the same or identical grades of pay shall be deter· mined by the dates of their confirmations in such posts."

We do.not find it possible to read r. 9 as governing the inter se seniority between the "provincialised" and the State Cadre employees. The date of con· finnation in the Service is the crucial date for determining such seniority under r. 9 and the order dated September 27, 1957, cannot, by any stretch of language, be read as confirming all the pro· vincialiscd teachers in the State Cadre on October

2 S.d.R. SUPREME COURT REPORTS

1, 1957, on which date it is said they were brought into the service. In the normal and ordinary course it would be possible that teachers had been working in the erstwhile Board Schools on probation and they had not been confirmed in their appointments on October l, 1957, when they were taken over. It cannot be that all the teachers who had not even completed their probation were straightaway treated as confirmed in the. State Cadre so as to permit determination of their seniority inter ae with members of the State Service.

(3) Notwithstanding the par~aph quoted earlier conferring on the "provincialised" teachers "the same grades of pay and allowances as are allow-ed to their counter-parts already in government service" there is no specific provision or term in the govemment order expressly pointing to an intention to integrate it with the existing State service. On the other hand, the very specification that the grades of pay and allowances of the provincialised teachers would be the same as of the others is, to say the least, more consis~nt with the absence of an inten-tion. to integrate, for if integration were intended, they would have the same pay and allowances by virtue thereof and no separate provision thereof would be necessary;(4) It is an admitted fact that of the twenty thousand and odd teachers falling within this cate-gory nearly 12 or 13 thousand were unqualified in the sense that they· had not even passed the Matricu-lation examination. To apply to them the State Cadre Rules particularly as regards promotion to the selection grade would have meant considerable hardship to them and this is certainly circumstance that has to be home in mind before drawing an inference that complete integration was intended, or was brought about. In fact, as has · already been pointed uut, while in the case of the State

1962 Stall ef l"njt/j v. Jo1it<Mr Siat•

Ayy1111•r1 . J.

1962 Si.II ef Pu•ju y, l•ti•I" Sinp A.,J01tlM1 J.

cadre teachers minimum educational qualification of Matriculate with five years teaching experience is prescribed for appointment to the selection grade, the requirement as to being Matriculate has been dis-pensed with in the impugned rules in the case of the "provincialised" cadre. The conclusion we rea:ch from the above analysis is that by the order dated September 27, 1957, which came into effect from October 1, 1957, teachers in the erstwhile Board schools became employees of government and were given the s?me scales and grades of pay as were applicable to their counterparts in the State cadre, but exce{'t this equality of grade and pay there v.:as nothmg more that was contemplated or provided for by that order.

We consider therefore that there is force in the submissions made to us on behalf of the appellant that the determination of the precise status of.the "provincialised" teachers and their relationship vis-a-vis the teachers in the State Cadre was the subject of consideration by the government which resulted in the promulgation of the impugned rules. In the document marked as Ex. R-1 which was in the nature of memorandum explaining the impug· ned rules, the State Government stated :

"Consequent upon the provincialisation of Local Bodies' Schools the staff working in such schools was :taken over into Government Service. It was necessary to determine dicit seniority vis-a-vis the old Government staft'. The followin~ three alternatives with regard to the integrauon of the two servicerwcre COii· sidered :-

(a) Grouping formula· i. e,, counJeng of full service of the local body tea rs for the determination of joint seniority list;

(b) Integration of the two serviceiHnto joint cadre on the basis of counting service of

2 S.C.R.

the local body teachers from the date of provincialisation on grade to grade and cadre to cadre basis ;

(c) Keeping separate cadres of the provincial· ised staff and of the staff of the erstwhile Government schools."

The government considered that the third alternative was the best to be followed in the interests of sound educational policy and also in the interests of these very teachers and r. 3 of the impugned rules which we have· set out earlier was evolved in order to reconcile the conflicting and divergent interests of the two Services which it was decided should be kept apart.

Apart from questioning the validity of the

impugned rules we did not understand the respondent to deny that the government had considered this pro-blem in the manner set out between 1957 and January 1960.

If, as we hold, there was no integration (and

integration has no meaning unless it is complete, for there is no such thing as partial integration) either expressly or by necessary implication, it would follow that it was not the impugned rules that created the two distinct cadres but that they existed independently of the rules and the only charge 1that could be laid against the rules in this respect was that they fail.yd to effect an integration. There .was some argument before the High Court that the mere existence of two Services with similar grades and scales of pay and almost similar other eonditions of service was itself illegal as amounting to discrimination prohibited by Art. 14. In the counter-affidavit which was filed by the State the Writ Petition of the respondent it was stated that there were very wide differences in the qualifications possessed by, the members of the two

1!162 Slal1 of Prmjab v. l•tindn Sintlo .dJJanpr, J,

JY62 Stolt of Pajab v. J 01i11d1r Sinth A)Ja1u, J.

Services and great disparity in the methods of recruit-ment. There were minimum educational qualifications prescribed by the Educational Service Class III Rules, 1955 as well as the rules as they stood as notified on May 30, 1957 under which teachers in the State cadre were recruited. Besides, they were recruited after interview by the Public Service Commission, but this was not the case in the Board schools, between which even there were very great variations both in · the minimum qualifications to be possessed and in the1 methods of recruitment. In. view of these differences ~e counter-affidavit by the State averred that the "provincialised" teachers and the State teachers could not be said to form the same class as to require identity of treatment. The. facts stated in this respect were not controverted before the Hi~h Court by the respondent and by those whose petitions were disposed of along with his and it was for this reason that counsel for the ·respondent speci-fically abandoned before the High Court all argument about the differentiation of the two Servicea per ae not amounting to discrimination within Art. 14. The reasons therefore which underlay the abandonment of any argument regarding Art. 14 would negative any submission that the recognition of the two Services as independent cadres was itself discriminatory, once the argument about their having been integrated by the Government Order of September 27, 1959 be rejected. It would therefore follow that if the respondt'nts can-not sustain their contention that the order dated September 27, 1957, effected c;:omplete integration of the two Services, there could be no basis for the submission that the "provicialiscd" teachers and teachers in the State Cadre formed the same class so as to enable comP.laint to be made under Art. 14 if they were treated differently.

It now remains to consider point which was

raised that the State cannot constitute two Services CO!JSis~ of employees doing the same work but wiib

2 S.C.R.

different scales of pay or subject to different conditions . of service and that the constitution of such services would be violative of Art. 14. Underlying this sub-mission are two postulates : (1) equal work must receive . equal pay, and (2) if there be equality in pay and work there have to be equal conditions of service. So ·far as the first proposition is concerned it has been definitely ruled out by this Court in Kishori llfohanlal v. Union of lndia(1). Das Gupta, J., speaking for the Court said :

"The only other contention raised is that there is discrimination between Class I and Class II officers inasmuch as though they do the same kind of work their pay scales are different. This, it is said, violates Art. 14 of the Constitution. If this contention had any validity, there could be no incremental scales of pay fixed dependent on the duration of an officer's service. The abstract doctrine of equal pay for equal work has nothing to do with Art. 14. The contention that Art. 14 of the Constitution has been violated. therefore, also fails."

The second also, is, in our opinion, unsound. If, for

instance, an existing service is recruited on the basis of certain qualification, the creation of another service for doing the same work, it .might be in the same way but with better prospects of promotion cannot be said to be unconstitutional, and the fact that the rules framed permit free transfers of personnel of the two groups to places held by the other would not make any difference. We are not basing this answer on any theory that if government servant enters into any contract regulating the conditions of his service he cannot call in aid the constitutional guarantees because he is bound by his contract. But this conclu-sion rests on different and wider public grounds, viz., that the government which is carrying on the admi-nistration has necessarily to have choice in the constitution of the services to: man tl,ie <14mini11tr.ati!>,IJ

(I) A.IA. (11162) S, Q, JISll·

. 1962 Stall of Punjab v. Jogind1r Singh Ayyongar, J,

1962 St•I• of P•n}ab •• Jogintler Sin1ll Ayyt1111ar, J.

and that the limitations imposed by the constitution are not such as to preclude the creation of such services. Besides, there might, for instance, be temporary re-cruitment to meet an exigency or an emergency which is not expected to last for any appreciable period of time. To deny to the government the power to recruit temporary staff drawing the same pay and doing the same work as other permanent incumbents within the cadre strength but governed by different rules and conditions of service, it might be including promotions, would be to impose restraints on the manner of admi-nistration which we believe was not intended by the constitution. For the purpose of the decision of this appeal the question here discussed is rather academic but we are expressing ourselves on it in view of the arguments addressed to us.Besides the disparity in the chances of promo· tion between teachers of the provincialised and the State Cadre created by r. 3 of the impugned rules, the learned Judges of the High Court have held that there was further disparity by reason of the teachers of the State Cadre being borne on Divisional list, while under the rules the inter se seniority and pro-motions of "provincialised" teachers was determmed district-wise. It was pointed out by the learned Solicitor General for the appellant that the State Cadre was kept on Divisional basis because of the ve-ry small number of the members of that Service, whereas it was found administratively inconvenient to have similar geographical classification of members of the provincialised service and for that reason and no other, district-wise seniority, promotion and transfers was laid down for provindalised teachers. Learned Counsel for the respondent did not rely on this reasoning of the learned Judges of the High Court in deciding the case now under appeal. We therefore do not consider it nece11sary I<• make any further reference to it.

As we have stated already, th!' two services started as independent Services. The 9.ualifications prescribed for entry into each were different, the method of recruitment and the machinery for the same were also different and the general qualifications possessed by · and large by the members of each class being different, they started as two distinct classes. If the government order of September 27, 1957, did not integrate them into single service, it would follow that the two remained as they started as two distinct services. lf they were distinct services, there was no question of inter se seniority between members of the two services, nor of any comparison between the two in the matter o.f promotion for found-ing an argument based upon Art. 14 or Art. 16(1). They started dissimilarly and they continued dis-similarly and any dissimilarity in their treatment would not be denial of equal opportunity, for it is common ground that within each group there is no denial of that freedom guaranteed by the two Articles. The foundation therefore of the judgment of the learned Judges of the High Court that the impugned rules created two classes out of what was formerly single class and introduced elements of discrimination between the two, has no factual basis if, as we hold, the order of September 27, 1957, did not effectuate complete integration of the two Services. On this view it would follow that the impugned rules cannot be struck down as violative of the Constitution.

Before concluding it is necessary to point out

that, as explained earlier, the source of the prejudice caused by the impugned rules to the "pro· vincialised" teachers lies not in the. fact that the two cadres were kept separate but on account of the fact that the "provincialised" cadre was intended to be gradually extinguished. The real question for con-~ideration wou Id therefore be whether there was any· thing unconstitutional in the Government decision in

Stale of Punjab v. J ogind1r Sing~ A,,agnar, J. ~

1962 Sl4l1 qf P•nfrr6 v. Jo1indlf w,,,h A..JJUI•'· J.

Shala, J.

the matter. In other words, had the respondent and his class any fundamental right to have their cadre stren-gth maintained undiminished? This is capable of being answered only in the negative. If their cadre strength became diminished, the proportion thereof who could be in the grade, viz., 15% of the total strength being predetermined, there must necessarily be progressive reduction in the number of selection posts. In other words mere reduction of the cadre strength would bring about that result and unless the respondent could establish that the Government were bound in law to fill up all vacancies in the proviucialised cadre by fresh recruitment to that cadre and thus keep its strength at the level at which it was on October l, 1957, he should fail. It is manifest that such contention is obviously untenable.There could not be anydispute that the impugn-

ed rules which enable vacancies in the selection grade of the State Cadre to be filled in part by teachers belonging to the "provincialised" service by the devise of the block system greatly improves their position. Tlte claim in the memorandum accompany· ing the impugned rules Ex. RI that the sy~tem has been framed so as to improve their conditions should therefore be considered to have some justification.

The appeal is accordingly allowed and the

order of the High Court striking down r. 2(d) and (e) and r. 3 in so far as it relates to promotions is set aside. In the peculiar circumstances of this case we consider that there should be no order as to costs in this appeal.

SHAH, J.-In this appeal the validity of the

Puajab Government Notification No. 12832-ED-II· 59(2935 dated January 27, 1960, and the Rules framed under Art. 309 of the Constitution by the Governor of Punjab, on February 13, 1961 in so far as· they purport to prescribe scheme. for Pro· motion of "provincialised" junior teachers to the selection grade is challenged.

2 S.C.R.

On the re-organisation of the State of Punjab on November 1, 19q6, the Patiala and East Punjab States Union which was part 'B' State was merged with the State of Punjab, but for administrative purposes, in so far as it related to matters educational, · the area was maintained as separate division and the teachers serving in that region were maintained in separate cadre. In this appeal we are not concerned with the rights and obligations of those teachers. On July 23, 1957, the Government of the State of Punjab issued scheme of revision of scales of pay of low-paid public servants. By paragraph 3 which applied to employees in the Education Department it was directed that all teachers according to their quali-fications be placed in two broad categories~ategory 'A' and Category 'B'. Teachers in Category 'B' were divided into three. classes, Lower Rs. 60-4-80/5-100/ii-120. Middle Rs. 120-5-175, and Upper Rs. 140-10-250. It was decided that "with view to providing incentives, posts falling in these groups should be in the following percentages :-

Group I-Lower scale

scale ...... 85 per cent Middle scale ...... 15 per cent

15 per cent of teachers in this group should straightway be promoted .to the middle scale by selection, based on seniority and merit, while the rest should be given the lower scale."

We are not concerned with Group II and Group IJI in this appeal.

Before October 1, 1957, in the State of Punjab (excluding the territory of the Patiala and East Punjab States Union which had merged with the State on re· organisation of the States on November I, 1956) there were two sets of schools-schools maintained by the District and Municipal Boards and schools maintained by the State. On September 27, 1957, the Government

St1:11 of PU1tjU v. Jo,U.dl'f s;.1• Sholl, I.

Stall of Pujab v. Jogindtr Singh Shih, J.

of the State of Punjab issued Notification "provincialising" all District Board and Municipal Board schools with effect from October l, 1957, and took over the management of those schools. The number of schools to be taken over and the posts to be created in respect of the teaching and other staff in the various grades were set out in paragraph 2 of the scheme. Out of the 'provincia!ised teachers' 3016 (J.V.S, J.T.S, and J.B.F.S, and others) were to be absorbed in the grade of Rs. 120-5-175 and 17123 in the grade of Rs. 60-4-80/5-100/5-120, and it was recited in the Notification that "all the incumbents of the Local Body Schools to be provincialised with effect from lst October, 1957 will be given the same grades of pay and other allowances as are given to their counter-parts already in Government employ. Their pay will be fixed under the rules and there will be no drop in their present emoluments'',The Government of Punjab thereafter appointed Committee for framing rules for fixing inter-State seniorHy of the 'provincialised teachers' and the State Schooh teachers, the terms of pension and other allied matters. By letters d_at{d January 27, 1960, from the Secretary, Education Department, the Director of Public Instructions was informed that it had been decided, inter alia, that "the staff of provincialised schools and the erstwhile Government schools will be kept in separate cadres. All new entrants into service after the .date of provinciali.sation will be deemed to have joined the ranks of the staff of erstwhile Govern-ment schools. The provincialised staff cadre would be continuously diminishing cadre and would in course of time completely vanish leaving in the field only one cadre i.e. the cadre of Government staff. It is considered that this would ensure the same chances of promotion to the staff of erstwhile Government schools as existed before provincialisation whereas the provincialised staff would get the benefit of promotion to large number of posts created directly as result

2 S.C.R. SUPREME COURT REPORTS

of provincialisation. There would be no administra-tive difficulty with regard to the transfers of teachers borne on both the cadres from one school to the other irrespective of the fact whether it is provincialised school or Government school, inasmuch as the two cadres would be ~eparate only for the purpose of future promotions". It was also stated that "the two separate cadres will be known as "State Cadre" and "Provin-cialised Cadre". All the vacancies arising out of the normal incidence of retirements, promotions, etc. etc. in the Provincialised Cadre, will be transferred to the State Cadre. In the State Cadre, the posts will be split up in the ratio of 15 (Rs. 250-300 and 250-350): 85 (Rs. 110-250) in the case of Anglo-Vernacular Teachers; and 15 (Rs. 140-220) : 35 (Rs. 120-175) : 50 (Rs. 60-120) in the case of Vernacular staff. - The number of posts in the higher grades released as result of retirements, promotions etc. in the provin-cialised cadre minus those created on the State Cadre will be utilized for the promotion of teachers on the provincialised Cadre from lower to higher grades".

The respondent Jogendra Singh who was District Board Junior Vernacular teacher addressed memorandum to the Government of the State that the bifurcation of the Junior vernacular teachers into two categories was "unnatural" and put the teachers from the 'provincialised schools' to great disad-vantage and that the treatment being discriminatory "was wholly illegal, unreasonable and invalid and offended Art. 14 of the Constitution". It was sub-mitted that the scheme should not be introduced without promulgation by the Governor of the State of Punjab rules under Art. 309 of the Constitution. The respondent and others having failed to obtain any relief filed petitions under Art. 226 of the Con-stitution being petitions Nos. 1559 of 1960 and 61, Hi2 and 16:! of 19Gl for writs or orders or directions quashing the Punjab Government Notification No. 12832-ED-11-59/2935 dated January 27, 1963.

1962 SllJt. of Pu•ju •• Jogilllhr Singh Shah, J.

1962 SIOll'Of Punjab v. Jogind1r ,'\inth Shah, J.

Subsequent to the institution of the petitions the Governor of Punjab published rules on February 13, 1961, under Art. 309 of the Constitution setting up separate cadre of 'provincialised' teachers and regulating conditions of service of the teaching staff taken over by the State Government from the Local authorities consequent upon 'provincialisation' of the Board schools. Simultaneously with the publication of the rules, 'policy statement' explaining the reasons for setting up distinct cadre, and· the scheme for promotion to higher scale and other matters was also published. It wa5 recited in the 'policy state-ment' that after considering three alternative schemes one of grouping, other of integration of the two services into joint cadre and the third of keeping separate cadres of provincialised staff and the staff of the erstwhile Government schools, the following important 'policy decision' was taken by the Govern-ment-

"(i) The st.aft' of the provinciali5ed schools and the erstwhile Government schools will be kept on separate cadres;

(ii) All higher posts created on 1st October, 1957 directly due to the provincialisation of Local Body schools will be filled up by promotion from amongst the staff borne on the provincialised cadre

(iii) Provincialised Cadre will be diminishing cadre and all future recruitment will be made on the State Cadre ; (iv) All the vacancies arising out of the normal incidence of retirements, promotions, etc. in the Provincialised Cadre will be trans-ferred to the State Cadre. x x x x The number of posts in the higher grades released as result of retirements, promo-tions, etc. in the Provincialised Cadre minus those transferred to the State Cadre

2 S.C.R. SUPREME GOUR T REPORTS

will be utilised for promotion in the Pro· vincialised Cadre,"

In dealing with the Vernacular Junior teachers it was stated : There are the following two grades in this section and the posts were divided in the ratio of 15: 85 (a) Rs. 120/175: 15 per cent and (b) Rs. 60/120 : 85 per cent. Before teacher is promot-ed from category (b) to (a), he/she must have at least five years' service to his/her credit."

By rule 2(d), the expression 'service' was defin· ed as meaning the Punjab Educational (provincialis· ed Cadre) Class III Service. 'State Cadre' was de· fined as meani,ng the Punjab Educational State Service, Class III (School Cadre). By rule 3 it was pro· vided that the Service shall comprise the posts shown in the Appendix which shall be diminishing cadre and the number of posts in various cadres of the Service shall be regulated in the manner set out therein. Sub-rule 1 (i) provided that all posts creat-ed for any 'provincialised' school subsequent to its being taken over by the Government shall not con· stitute part of the Service but shall be borne on the State Cadre. By sub-rule 1 cl. (iii) it was pro· vided that the posts in various cadres of the Service falling vacant due to the normal incidence of pro-motions, retirement or any 'Other cause subsequent to the date of 'provincialiiation' of local authority schools shall be adjusted in the manner detailed therein. Sub-rule (2) provided that all posts in the Service shall be borne on State-wide cadre except the posts of Vernacular and Classical Teachers, J. A. V., or J. S. T. Teachers and Junior Teachers which will be borne on District-wise Cadres.

After promulgating the Rules and the Policy Statement, the Government of Punjab filed their written statement to the petitions and contended, inter ali-1, that they were competent to take the decision even after 'provincialisation' with regard to

Sl•l1 •f Plll!iab

l•tl•d" S0.11 Shah-I.

1962 S"114 of Punjab v. Jogindn Siogh SMh, ·1.

the service conditions of the 'provincialised' staff: that all the service rules including rules of seniority did not become automatically applicable to the 'provincialised' staff on October l, 1957, and as the 'provincialised' staff formed separate cadre for the purposes of promotion, there was reasonable classification and no discrimination between the State Cadre and the 'Provincialised' Cadre.

The High Court of Punjab rejected the plea raised by the State of Punjab and held that the teachers of the 'provincialised' cadre, and State cadre were "Government servants of the same class" and the former were deprived by the Rules and the scheme equality of opportunity of promotion, and discriminatory treatment was accorded to the 'pro· vincialised' staff by keeping them in separate cadre and treating recruitment to the vacancies accuring in the 'provincialised' cadre as in the State Cadre and at the same time maintaining uniform ratio of 15 and 85 per cent between the teachers drawing higher scale and the lower scale salary. The High Court accordingly declared that the Rules of 1961 in so far as they created two cadres created inequality of opportunity for promotion in the 'provincialised' cadre and in particular Rules 2 and 3 to the extent as stated above were void and inoperative against the petitioners. The Government of Punjab acquiesced in the order in three out of the four petitions, but for some reason which is not apparent on the record and none is furnished by counsel for the State filed an appeal only against the present respondent. That, however, is not ground on which we may be justi-fied in refusing to consider the appeal on the mcri ts as submitted by counsel for the State.

It is undisputed that there were more than

20,000 teachers in the "provincialised schools" out of whom 15 per cent were under the scheme of 'provin-cialisation" to be immediately posted in the higher scale and the remaining in the lower scale. In the

2 s.c.R.

State Service there were only 107 posts before October 1, 1957. The State teachers, and the pro-vincialised teachers were by the rules and the state-ment made in the policy decision formed into two separate i cadres, though they were given the same grades of salary, performed the same duties, and were liable to be transferred so as to interchange their posts. The vice of the scheme lay in the provision that all the vacancies in the provincialised cadre were not to be filled by entrants to that cadre but new entrants were to be treated as entrants to the State Cadre. The practical effect of that provision was that the 'provin-cialised' cadre was gradually diminishing cadre which would be extinguished in approximately about 30 years whereas the State cadre was an expanding cadre. By maintaining the uniform ratio of 15 to 85 in both the cadres between the higher scale and the lower scale some teachers in the; "provincialised" cadre and in the lower scale were relegated to perpetual state of remaining juniors even to new enirants in the State cadre. This is manifest from simple illustration. Assu-ming that 3 per cent of the total strength fall vacant at the end of each year on account of death, retirement, resignation and other causes, their would be approxi-mately 630 vacancies in the first year of the operation of the scheme 630 new appointments would therefore be made in the State Cadre, in that year, and the 'pro-vincialised' Cadre would be reduced by that number. The State Cadre which consisted of 107 on October 1, 1957, would on October 1, 1958, be cadre of 737 teachers, and because of the uniform ratio of 15 to 85 per cent in each cadre between the higher scale and the lower scale 15% of 737 teachers would have to be placed in the State cadre in the higher scale. That would mean that practically all the teachers in the State Cadre would be.promoted to the higher scale at the end of the year irrespective of their seniority provided they satisfied the requirement of the rule relating to educational qualifications and the requisite qualifying length of service. Assuming that all the

S1<1t1 of Pmu'ab v. Jogindtr SU.th Shah, J.

1962 Sla/1 of Punjab v. Jogintkr Singh Shah J.

107 teachers possessed those qualifications all the members of the old State Service would be promoted to the higher scale. At the end of the year ending September 30, 1959 the scheme would break down, because in the State Cadre there would be total strength of 1345 out of whom more than 201 would be in the higher scale. For that purpose more than hundred would have to be promoted to the higher scale, and the Government would have to draw upon the junior scale of the State Cadre who may not have satisfied the requirement as to the duration of service. If the condition of length of service is waived about 100 teachen who are new entrants in the State Service . would ·be promoted to the higher scale, whereas large number of 'provincialised' teachers would still continue to remain in the lower scale even though they would be many years senior to the new entrants and may otherwise have the requisite qualifications for promotion. That this would be the result of complying with the terms of the scheme, is not disputed by the Solicitor-General who appeared on behalf of the State.

Article 16 (1) of the constitution provides : "There' shall be equality of opportunity for all citizens in matters relating to employment or appointment to any office under the State". This Court in dealing with the extent of protection of Art. 16 (l) observed in General Manager Southern Rly. v. Rangachari('),

"it would· be clear that matters relating to em-ployment cannot be confined only to the initial matters prior to the act of employment. The narrow construction would confine the appli-cation of Art. 16 (1) to the initial employment and nothing else ; but that clearly is only one of the matters relating to employment. The other matters relating to employment would inevi-tably be the provision as to the salary and periodical increments therein, terms as to leave, as to gratuity, as to pension and as to the age of (IJ [19oZJ 2 s.c.R. 586.

2 S.C.R. SUPREME COURT REPORTS

superannuation. These arc all matters relating to employment and they are, and must be, deemed to be included in the expression 'matters relating to employment' in Art. 16 (1) xx xx What Art. 16 (1) guarantees is equality of opportunity to all citizens in respect of all the matters relating· to employm<>nt illustrated by us as well as to an appointment to any office as explained by us. x x x x The three provisions (Art. 16 (1), Art. 14 and Art. 15 (1)) form part of: the same constitutional code of guarantees and supplement each other. If that be so, there would be no difficulty in holding that the matters relating· to employment must include all matters in relation to employment both prior, and subsequent, to the employment which are incidental to the employment and form part ·Of the terms and conditions of such employment."

Dealing with Art. 16 (1) the Court observed:

"Art. 16 (2) 'prohibits discrimination and thus assures the effective enforcement of the funda-mental right of equality of opportunity guaran-teed by Art. 16 ( 1). The words 'in respect of any employment' used in Art. 16 (2) must, therefore, include all matters relating to employ-ment as specified in Art. 16 (1). Therefore, we are satisfied that x x x promotion to selection posts is included both under Art. 16. ( 1) and (2)." .

Ex facie, by the promulgation of the rule and the implementation of the scheme of promotion the fundamental right of the junior teachers in the 'provincialised' cadre and in the lower scale is infring-ed. But the Solicitor-General appearing on behalf of the State of Punjab contended that the 'provinci-alised Cadre' was newly created cadre, and it was

Stat1 of Punjab v. Jogirul1r Sin1~ Shah, J.

Stat• of Punjab •• Jagind1r Singh Skal1. J.

open to the Government of the State to offer such terms of employment as they thought proper to the new entrants in the Service when the District Board and Municipal Board i.chools were 'provincialised'. The Government in exercise of their admitted right, said counsel, offered terms of service which though substantially similar to the terms by which the 'State Cadre' was governed, differed in two important respects (i) that the transfer of junior teachers was to be within the District and (ii) that the right of promotion was restricted in the manner prescribed, and the provincialised teachers having accepted those terms, they formed separate grade with different terms of employment and they could not be deemed to belong to the same class as members of the State Cadre, and therefore the case of the respondent was one covered by the decision of this Court in All India Swticm Masters' & Assistant Stat·ion Masters' Associ-ation v. General Manager, G. R. (') and Ki.Yhori Molianlal Bakshi v. Union of India ('). Counsel relied upon the principle enunciated by this Court in All India Staticm Masters' case (') that ··'the question of denial of equal opportunity required sericus con-sideration only as between the members of the same class. The concept of equal opportunity in' matters of employment, does not apply to variations in pro-visions as between members of different classes of employees under the State. Equality of opportunity in matters of employment can be predicted only bet-ween persons who are either seeking the same employ-ment, or have obtained the same employment. Equality of opportunity in matters of promotion, must mean equality as between members of the same class of employee and not equality between members of separate, independent classes"; and in Kishori Mohanlal Bakshi's case(') that "inequality of opportu-nity for promotion as between citizens holding differ-ent posts in the same grade may, therefore, be an infringement of Art. 16". That no such question can arise at"all when the rules make the members of two

(2) A.I.R, (1962) S.C. 1139.

(I] [1960] 2 S.C.R. Sil.

2 S.C.R. SUPREME COURT REPORTS

grades eligible for promotion to different posts, there is in strict sense, no denial of equality of opportunity as among citizens holding posts of the same grade. As between citizens holding posts in different grades in Government service there can be no question of equality of opportunity and that Art. Hi does not forbid the. creation of different grades in the Govem-men t service.

The crucial point falling for determination in this case is whether the members of the 'Provincialis-ed Cadre' belong to the same grade as the members of the 'State Cadre.' It is true that two separate cadres-the State Cadre, and the Provincialised Cadre-were formed by the Government, but in our judgment the division into two cadres was not deci-sive of the question whether there was denial of equal opportunity. The same scales of remuneration were paid to members of both the cadres. They perform-ed the same duties and functions and held the same posts. Posts occupied by State Cadre teachers could be occupied by the 'Provincialised' school teachers and vice versa. It is admitted in the letter dated January 27, 1960, addressed by the Secretary to the Government of Punjab, Education Department to the Director of Public Instructions, which formed the basis or the setting up of the two cadres, that the two cadres u:ere separate only for the purposes of future promotion. We are in the circumstances unable to hold that between the members of the State Cadre and the 'Provincialised' Cadre there was any valid basis r classification so as to justify differential treatmc nt between their members inter se for the purposes of promotion without infringing the Consti· tutional guarantee of equality of opportunity in the matter of employment. In the· All India Station Master's case (') there were two distinct classe$ of Railway employees-Roadside Station Masters and Guards. These two elasses of employees performed distinct duties : each class had separate rules fixing (I) [1960] 2 S.C.R. Sil.

Slol1 of Punjab v. Jogiruier Si,,gh Shalt, J.

StaU of Punjab v. Jogfttd6r Singh Shah, J.

206 SUPREME GOUR T REPORTS [1963] SUPP.

the number of personnel of each class, posts to which the men in that class will be appointed, questions of seniority, pay of different posts, the manner in which promotion will be effected from the lower grades of pay to the higher grades. It wa~ the view of the Court that they could be reasonably considered to be separate classes each in many matters an independent entity with its own rules of recruitm~nt, pay and prospects and other conditions of service varying con-siderably from another.

In Kishori Mohanlal Bakshi's case ('), the Income-tax services were reconstituted. One of the features of the reconstitution was that in place of single class of Income-tax Officers. two classes came into existence, one consisting of Income-tax Officers of Class I Service and the other class in which all the then existing Income tax Officers were placed forming the Class II Officers. Class I Officers were eligible to be promoted to the higher posts of Commissioners and Assistant Commissioners ; Class II Officers were not however digible to be directly promoted to the higher posts, percentage of the vacancies in the posts of Class I Officers was to be fillrd by promotion of Class II Officers and the rest bv direct recruitment. The two classes of Officers did undoubtedly perform the same kind of work but their pay scales were different. The Court on those facts held that there was no denial of equal opportunity among citizens holding posts of the same grade. In the present case, it can-not be said that the grades of the 'Provincialistd' teachers and the State Cadre were different. It may be true that in some cases, lower degree of ~fficiency may have been insisted upon at the time of recruit-ment to the service which ultimately becamt> the 'Provincialised' Cadre. But once the District Board and Municipal Board school teachers were taken over by the Government of Punjab and an amalga-mated Educational Service was evolved, any special (I) A.LR. (1962) S.C. 1139.

2 S.C.R.

SUPREME ·coURT REPORTS

provision relating to promotion depending solely upon the source of recruitment and upon no other ground seriously affected the rights of the members of the 'Provincialised' Cadre to promotion, and infringed Art. 16 cl. (1) of Constitution. It may be noticed that for promotion to the higher grade the conditions in respect of b\'.)th the State Cadre and the 'Pro· vincialised' Cadre are the same namely that the teacher must be Matriculate and must have put ·-in service for five years in the Education Department. Therefore persons not possessing the prescribed educa· tional qualifications admitted to the District Board and Municipal Boards as teachers will have no right to promotion.

It was submitted on behalf of the State that

it was open to Government to give to the members of the 'Provincialised '· Cadre such terms as they thought proper and the Government was not bound to give the 'Provincialised' Cadre the same grades as were in fact given and therefore it was not open to the members of the 'Provincialised' Cadre to raise dispute about the validity of the provisions relating to promotions. Bllt if the Government in fact gave the lame termq of employment and have in effect constituted single grade of teachers State and 'pro-vincialised', any discrimination between the member,; of that grade based on the source of recruitment so as to treat persons who have subsequently entered the service differently would clearly infrin~e Ari. 16 (1) and (2). It was doubtless open tothe Government at the initial stage to give to the 'Pro· vincialiset1' Cadre different terms and not to con-stitute them into service with the same grade as the State Cadre, but the Government did give the same terms to the 'Provincialised' teachers, and it was not then open to the Government to make rules relating to prowotion so as to diqcriminate between the 'l'rovincialised' teachers and the State Cadre teachers.

N62 Stall of •. P"njab Jogindd Siifh Shah, J.

1962 S1at1 of Pu'ljab •• Jog;,,,/" Singh Shah, J.

It was also suggested that if the Government had treated all the teachers equally, the teachers who were absorbed from the Pepsu region would have taken precedence over the 'Provincialised' teachers and the members of the 'Provincialised' Cadre would not have even the slender chance of promotion to which they are entitled under the present scheme. It is unnecessary to consider as to what would have happened under different scheme if adopted by the Government. It is common ground that the teachers who were absorbed from the Pepsu region were form-en into separate Cadre, distinctive character of which has been maintained;' We are concerned in this case with the 'State' teachers and the 'Pro· vincialised' teachers under the scheme which came into effect on October l, 1957 and in that scheme teachers absorbed from the Pepsu region have not been integrated. It is problematical whether 'Pro-vincialised' teachers would have stood to gain by being integrated into common service with the teachers in the Pepsu region. That is question which.does not fall to be determined in this appeal.

Finally, it was contended that the rules having

been given retrospective operation from October l, 1957, it was open to the Government to accord to the new entrants such terms as the Government thought proper and thereby no right of the new entrants was infringed. But it cannot be forgotten that in the firsffostance Government of the State admitted the 'Provincialised' teachers into single unit of employment and thereafter by retrospective provision they .have sought to provide dif\erential treatment between the two sections constituting one unit. It is against this differential treatment that the protection of Art. 16 is claimed and in our judg-ment avails.

In our view the High Court was right in hold-

ing that the rules in so far as they provide for diffe· rential treatment between the members of the 'State

2 S.C.R. SUPREME COURT REPORTS 209

Cadre' and the 'Provincialised Cadre' in the matter of promotion to the higher scale must be regarded as invalid. The appeal must therefore fail.

BY COURT : In view of the opinion of the majority, the appeal ,is allowed and the order of the High Court striking down r. 2(d) and (e) and r. 3 in so far as it relates to promotions is set aside. There will 'be no order as to costs in this appeal.

SIMI of hl}ob ' 'v. l•ri"'" SilltA ··-SW,I.

COMMISSIONER OF· INCOME-TAX, BOMBAY v.

ROBERT J. SAS

(S. K. DAS, J. L. KAPUR, A. K. SARKAR;

M. HIDAYATULLAH and RAOHUBAR DAYAL, JJ.)

Inwme Tax-Notico of ·as•umaent-Limitalicm for-Income deemed lo be distributed as dfoidtnd-Indian I~z Act, 1922 (11of1922), 88. 23 A(l), 34,

The asscssccs were the three sharcholden of private company. The company made profits in the calendar year 194 7, but did not declare any dividend at the shareholders mreting· held on December 4, 1948. The Income-tax Officer passed an 01 der under s. 23 (I) of the Income· tax Act whereby the income of the company was dccrncd to have been divided amongst the· three shareholders. He issued notices to the as'ICSSCCS which were served on them on April 1, 1954. The asscssecs contended that the notices were served beyond the period of four }can allowed by s. 34 (1) (b),

Held, that the notices served under s. 34 (1) of the Act were beyond time . and the Income-tax Officer had no jurisdic-tion to assess the asses.secs. Under s. 23A ( 1) the dividend was to be d~med to, have been. distnbuted not on June 30, 1949, by which date the company should have distributed the dividend, but on the date of the general meeting i.e., December, 4, 1948 within the accounting year 1948 and asscssmeut year

N-"', 16,