ANAND PARKASH SAKSENA versus UNION OF INDIA & ORS.

ANAND PARKASH SAKSENA

UNION OF INDIA & ORS.

December 14, 1967

[:k. N. WANCHOO, C.J., R. S. BACHAWAT, J. M. G. K MITTER AND c. A. VAIDIAL!NGAM, JJ.J

J. M. SHELAT

Indian Ad1ninistrative Service-1.A.S. Extension· tp Stat.es Schem'e-" Ofjic,er in the junior scale of pay if .has right to [lost in the s~n!or scale-All India Services (Discipline and Appeal) Rules 1955, r. 3--Filling of posts by non-Cadre officers, if penalty--1.A.S. R~cruilment ~u!es, 1954, r. 4(3), if bad for excessive delegation--Rerula11on of, Seniority Rules, 1954 r. 3(3)(b), Seniority of Special Recruits Regulation, 1960, regula-tion 3(3), if yiolative of Constitution of India, Arts. 14, 16.

The Madhya Bharat Cadre of the Indian AdminiStrative Service was constituted in 1951 under the l.A.S. Extension to States Scheme. The Cadre included all senior po•:s. numbe~ of junior and trainmg posts were provided to be held by officers rectuited to the cad.re before they acqu~red the experience and seniority necessary to hold senior posts. . 1:he primary source. for the initial constitution of the Cadre was the ex19Ung incumbents of the State Service. They were selected and included ID three Lists. Officers in List I were immediately appoint.ed to the Service. Officers in List II were to be taken in the service only when found suitable and those in List Ill were not to be absorbed in the service. List II and III officers were counted again& senior posts but these posts held by them were eJtcluded from the Cadre for the period they were held by thOse officers. The Cadre was to be rilaintained on. permanent basis by direct recruitment by competitive examination and promotion of Sta!e Civil Service Officers and twenty-five per cent of the senior posts werei reserved fur the latter. The Cadre continued· ¢o be govemed by the Scheme until 1954 when the I.A.S. Recruitment, Seniority Cadre and Pay Rules were made. Rule 9(1) of the Cadre Rules provides for appointment of non· cadre1 officers to cadre posts, i.e. senior posts, if suitable cadre officers are not available and ~he proviso tp the rule preserved the arrangement under the Extension to States Scheme for the holding of cadre posts by non-Cadre officers. Under Rule 9(1) of the Recruitment Rules twenty-five per cent of the senior posts are reserved for persons recruited under. rule 8, i.e. by promotion of substantive members of the State Civil Service and by selection of those who hold gautted posts in connection with !he affairs of State. The Special Recruitment Regulations, 1956, made under rule 4 of the Recruitment of Rules, provides for recruitmen4 by promotion to the Service by selection of persons serving in. connection with the affairs of .a State. In the matter of seniorh!y. the Regulation of seniority Rules, giv'es promotee from _State Civil Service the year of allotment of the junior-most direct recruit officiating continuouslv in senior post earlier than the date of commencement of such officiation by the promotee. The seniority of Special "Recruits Regulation, 1960. adopts the furmula applicable to promotees for fixing the seniority of those re-cruited by promotion un~er the Special Recruitment ReguJat~ons. '

. l)ie petitioner, 9-irect recruit by competitivet examinaiion. was ap-pointed to iunior post in i!.he Service on April 2. 1952. He was originaUy al.Jotted to the Madhya Bharat Cadre. which along with the former Vmdhya Pradesh and Madhya Pradesh Cadres merged in the present L2 Stip Cl/68-9

Madhya Pradesh Cadre con.stituted o.n ~ovember I, 1956. He was not found suitable .10 hold sentor post 1111 Novembe~ 17, 1956, when he was appointed to officiate in seI1ior. po~t. At th~ ume hts appo1n1~nt to the service there were no vacancies Jn the senior posts. Vacancies arose before he was appointed !o officiate in the senior post and after. Some of the respondents who were officers of the Madhya Bharat and the .former Madhya Pradesh Stat·o Civil Services were promoted before the 10tegra-tion of the cadres on November l, 1956 to fill the vacancies aga1ns.t the t\l.·enty-five per ~nt quota and several non-Cadre officers '"'ere appointed under r. 9( I) of the Cadre Rules. Vacancies were also filled in .by p~­motion under the Special Recruitment Regulations. Jn chc gradallon List puhlishcd on January I. 1966 nll the respondents \\'ere shown as senior to t:le petitioner.

Jn writ petition, under Art. 32 the petitioner contended t~at (i) he had right c.o hold post in the senior scale of pay from April 2 .. 1952 to November. 17, 1956, 1mder the Rules and in the light of this Court'• decision in P. C. Wadhwa v. Union of Jrrdia and th·~ filling of the vacancies by non-Cadre officers amounted to \\'ithholding of promotion and penalty within the meaning of r. 3 of .:he All India Service (Discipline and Appeal) Rules, 1955: (ii) under the rules scl'cnty-fivc per cent of the total number of senior posts was exclusively reserved for direct recruits and that in computing the twenty-five' per cent quota offiC<>rs in Lists II and III and spc<:ial recruits had to be included; (iii) r. 4 (3) of the Recruitment R11les which authorised the Central Government to make regulation f\Jr special recruilmen: was had on the ground of excessive de.~etation; (iv) r. 3(3) (b) of the Regulation of Seniority Rule•. 1954, made unjust discrimination between promotee and direct recruit in the matter ')f seniority by arbitrarily allotting lower year of allotment to promo!"" and therefore violated Arts. 14 and 16 of the Con•titution; and (v) regulation 3(3) of the Seniority of Special Recruits, Regulation 1960, offended Art<. 14 and 16 inasmuch as :he relevant rules and regulation• set up an arbitrary double standard for special recruit onlisted by promotion.

HELD : Dismissing 11>! petition.

(i) Tht filling of vacancy by n.on-Cadrc officer under r. 9 of the Cadre Rules does not infringe any right of the Cadre officer nor does it amount to withholding of oromo<ioii or penalty \vithin the meaning of r. 3 of Ali India Service (Discipline and Appeal) Rules, 1955. Cadre 9fficer in. the juni~r scale of pa¥ cannot claim ·a right to flll vacancy m the senior scale 1f he 1s not SU!table and no Cadre officer junior to him Js promoted to fill the vacancy, The decision in Wadhlva's case is dis· tin~uishablc. That case only decided that the reversion of Cadre officer \\'h1lc Cadre officers junior to him co~inued in the ~en.ior scale amounted not only to reduction .in rank but also to withholdin~ of oromotion. Rule 6 A(2l of the Recruitment Rules in.troduced in 1965 after the decision 1n Wnd'711'a'.f case now makes explicit "'hat \\'as always imp1icr. in r 9(1) or the Cadro Rules. .

Jn the instant case no Cadre Officer junior ~o the petitioner was pro-r.ll>tcd to the C~dre post bcfo.rc his promotion on November 17. 19~6 anJ after promotion he '-''3S nc11her rcv~rtcd nor reduced in rank nC'r ,~·· 1 " hi< promotion wi:hheld. [619 F-11: 620 E-Fl ·

P. C. Wadhwa v, U11io11 of India, [1964) 4 S.C.R. 593. distin"'1id1cd.

(ii) Seventy-five per cent of the senior posts may be filled by recruits other than those recruited by promotion or selection under r. 8 of the Recruitment Rules. Special ·recruits are appo;nted against the se~e.nty-five· per cent qtrota and rule 9(3)(b)(iv) added in 1965 makes exphc1t what was always implicit in r. 9(1) of the Recruitment Rules. Under the Ext~n­sion to State Scheme officers in Lists II and III were: not counted against the twenty-five per cent quota. Rule 9(3) (b) (iii) of the Recruitment Rules make it. clear that in computing the twenty.five per cent quota the appoinments of office.rs in List II will be excluded. [620 G, HJ

(iii) Assuming that the doctrine of excessive delegation. of Legislative power appli~s to rules, r. 4(3) does not suffer from the vice of excessiv~ delegation. In making t.:he regulations under the rule the Central Govern-ment is to be guided by the exigencies of the service and the advice of the State Governments ·and .~he Union Public Service Commission. These authorities arc the best judges of the appropriate regulations to b·;;: made in the matter [622 A-CJ

(iv) Rule 3(3)(b) of the Regulation of Seniority Rules is not violative of Arts. 14 or 16 of the Constitution. The object of the rule is to fix the seniority of !~e prof!'lote~s who .obtained. promotioJ?- after Jong service in the State Civil Service, 1n relation to direct recnuts. The ·rule· attempt<; to strike just balance between the conflicting claims of the promotces apd direct recruit<. [6-22 F-Gl

(v) Regulation 3(3) of the Special Recruits Seniority Regulations is not violative of Arts. 14 and 16. Special recruits are neither direct recruits nor promotees. They form distinct class. The regulai!ion. properly adopts the formula applicable to promotees for fixing the seniority of .special recruits ien1isted by promotion so that in the mati!er of seniority all officers recruited from the State Civil Services are placed on the same footing. [623 A-CJ

ORIGINAL JURISDICTION : Writ Petition No. 58 of 1967.

Petition under Article 32 of the Constituton of India for the enforcement of the Fundamental Rights.

N. C. Chatterjee, A. N. Sinha, S. Balakrishrtan and K. B. Rohtage, for the petitioner.

V. A. Seyid Muhammad and

Niren De, Solicitor-General,

R. H. Dhebar for R. N. Sachthey, for respondent No. 1.

B. Sen and I. N. Shroff, for respondents Nos. 2 to 18.

The Judgment of the Court was delivered by

Bachawat, J. The petitioner is member of the Indian Admi-nistrative Service having been appointed to junior post thereirj on April 2, 1952 on the basis of competitive examination held by the Union Public Service Ct:lmmission in the year 1951. He completed his probation on October 2, 1953. He was originally allotted to the Madhya Bharat Cadre of the Indian Administrative Service which along with the fonner Vindhya Pradesh and Madhya Pradesh cadres, merged in the present Madhya Pradesh cadre of Indian Administrative Service constituted on November 1, 1956.

He was appointed to officiate in senior post on November 17, 1956. In the gradation list published on January I, 1966, his number is 70. In this writ petition under Art. 32 of the Consti-tution he claims that (a) he had the right to hold post in the senior scale of pay from April 2, 1952 up to November I 7, 1956 under the relevant rules read in the light of the decision in P. C. Wadhwa v. Unioll of India(') and that (b} he is entitled to higher place in the gradation list. He asks for the issue of appro-priate writs dec.aring his rights and giving him consequential reliefs. ·The Madhya Bharat cadre of the Indian Administrative Service was constituted on June I, 1951 under the Indian Administrative Service Extension to States Scheme. The cadre included all senior posts. number of junior and training posts were pro-vided, to be held by officers recruited to the cadre before they acquired the experience and seniority necessary for holding senior posts. The initial constitution of the cadre was made from (1) the existing incumbents and (2) emergency recruits. The existing incumbents were considued to be the first and primary source of recruitment. They were selected by Special Recruitment Board and divided in three lists. Officers in List I were considered fit for immediate appointment to the Service. Officers in List II were to continue to hold their present posts, their work was to be watched for 5 years and were to be absorbed in the Service as and when they were found fit. Officers in List III were to hold their present posts or posts of equivalent rank until they retired but they were not to be absorbed in the Service. The posts helci by officers in Lists II and III were excluded from the cadre for the period during which they were held by those officers. The cadre was to be maintained on permanent basiS by (a) direct recruitment on the result of the competitive examination and (b) promotion from amongst officers of the State Civil Service. As in the case of the Provincial cadres, 25 per cent of the senior posts were earmarked for promotion of officers of the State Civil· Service.

On June I. 1951, the number of senior posts in the Madhya Bharat cadre was 25. On selection by ·the Special Recruitment Board, 6 officers were placed in List I and were appointed to the Service from January 1, 1951. Four officers were placed in List II and 11 officers were placed in List III and they continued to hold their po>ts under the Extension to States Scheme,. The remai!ling 4 senior posts were held by 4 emergency recruits. On Apnl 2 1952. there was thus no available vacancy for the petitioner in the senior posts. As matter of fact, 2 direct recruits senior to the petitioner were in the junior scale of pay.

(I) (1964) 4 S.C.R. 598.

In September 1954, the Central Government framed the I.A.S. Cadre Rules, 1954, I.A.S. Recruitment Rules, 1954, l.A.S. Pay Rules, 1954 and I.A.S. Regulation of Seniority Rules, 1954 in exercise of its powers under s. 3 ( 1) of the All India Services Act, 1951. These rules were amended from time to time. Under r. 2(a) of the Cadre Rules, cadre officer means member of the Indian Administrative Service. Under r. 2(b), cadre post means senior cadre post under the State Government. Under r. 3, an I.A.S. cadre is constituted for each State or group of States. Under r. 4, the strength and composition of each cadre is determined by regulations made by the Central Government. Rule 8 provides that "Save as otherwise provided in these rules, every cadre post shall be filled by cadre officer." Rule 9 (1) provides that "A cadce post in State may be filled by perso11 who is not cadre officer if the State Government is satisfied (a) that the vacancy is not likely to last for more than three months; or (b) that there is no suitable cadre officer available for filling the vacancy." If person other than cadre officer is appointed to cadre post for period exceeding three months, the fact shall be reported to the Central Government who may, on receipt of the report, direct the State Government to terminate his appoint-ment and if he is likely to fill cadre post for period exceeding six months, the Central Government must seek the advice of the Union Public Service Commission and in the light of its advice. give suitab1e direc'.ions to the State Govercme1t. It was provided that r. 9 would not affect the existing arrangements made by the Central Government in connection with the Governments of Part States and the State of Vindhya Pradesh at the time of the initial constitution of the cadre for certain cadre posts to be fiUed by non-cadre officers.

Rule 3 of the I.A.S. Recruitment Rules. 1954 gives the cons-F titution of the se·vice. Rule 4 specifies the methods of recruit-ment. Sub-rule (1) of r. 4, as amended, provides that "Recruit-ment to the :'.crvice, after the commencement of these rules, shall be by the following methods, namely: (a) by competitive examination; (aa) by selection of persons from among released Emergency Commissioned Officers and Short Service Commis-G sioned Officers, commissioned in the Armed Forces of the Union after the 1st November, 1962; (b) by promotion of substanfve members of State Civil Service; ( c) by selection. in special cases from among persons, who hold in substantive capacity gazetted posts in connection with the affairs of State and who are not members of State Civil Service." Sub-rule (3) of r. 4 provides that "Notwithstanding a'lything contained in sub-rule ( 1), if in the opinion of the Central Government the exigencies of the service so require, the Central Government may, after consul-tation with the State Governments and th.e Commission. adopt

such methods of recruitment to the Service other .than those speci-

fied in the said sub-rules as it may by regulations made in this behalf prescribe." Rule 6 provides that no appointment to the Service shall be made except after recruitment by one of the methods specified by r. 4 Rules 6A(2) introduced with effect from September 24, 1966 after rhe decision in P. C. Wadhiva·s case( [1 ]) provides thar "A direct recruit in the junior time-scale of pay shall be appointed to post in the senior time-scale of pay if, having regard to his length of service, experience. and pcrfo~ancc in the junior time·scale of pay, the State Government is satisfied that he is suitable for appointment to post in the senior time-scale of pay." Rules 7. 7A, 8(1) and 8(2) deal with the four methods of recruitment specified in r. 4 and empowers the Central Government to make appropriate regular ions. Ruic 8 (I) deals with recrutimcnt by promotion of substantive members of the Slale Civil Service. Ruic 8 (2) deals with recruitment by selection in special cases from amongst persons who hold, in substantive capacity, gazetted posts in connection with !he affairs of the State and who are no: members of the State Civil Service. Ru!e 9(1), as amended, pro vides inter a/ia that "rhe n•1mber of persons recruited under rule 8 in any State or group of States shall not, at any time, exceed 25 per cent of the number of' senior posts in relation to that State or group of States. Rule 9(3) (b) provides that "for the purpose of determining the percentage specified in sub-rule (1 )(b) the following category of officers shall be excluded namely:-(i) officers of Stale Civil Service appointed to the Service under the Emergency Recruitment Scheme otherwise than against the 25 per cent quota; (iii) officers of State Civil Service ap]JOinted to the Service from List II, prepared by the Special Recruitment Board under the Indian Administrative Service (Extension to States) Schemes; (iv) officers of State Civil Service appointed to the Service under the Indian Adminis•ra•ive Service (Special Re-cruitment) Regulations, 1956." Rule 9(3)(b)(iv) was added on October 15, 1965.

The I.A.S. (Special Recruitment) Re~ulations, 1956 were

made under r. 4 ( 3) of the Recruitmen! Rules. Regulation 3 pro-vides that special recruitment will be made (a) by direct recruit-ment by selection and (b) by p•omotion to the Service by selec-tion of per.;ons serving in connection with the atlair.; of the State. Regulations 8 and 9 adopt for the purposes of special recruitment the regulations for appointment by competitive examination, pro-motion and selection made under ru'es 7, 8(1) and 8(2) of the Recruitment Rules with appropriate modifications.

Rule 3 of I.A.S. (Pay) Rules, 1954 prescribes the scales of pay admissible to the m~bers of the Service. The junior scale is

(1)(196414 S.C.R. ~98.

_\ Rs. 400-400,500-40-700-EB-1000 (18 years). The senior scale is Rs. 900 (6th year or under)-50-1000-60-1600-50-1800 (22 years). The selection grade is Rs. 1800-100-2000. Rule 4(1) provides that the initial pay of direct recruit shall be fixed at the minimum of the junior time-scale. Rule 4(2) provides that the pay of member of the Service in the junior time-scale shall on appointment to post on the senior time-scale, be fixed at the corresponding stage of the senior time-scale as shown in Sch_. 1. The two scales of pay are given in Sch. 1 in parallel columns against the years of service. The increments, withholding of incre-ments and grant of advance increments are regulated by rules 5, 6 and 7.

Rule 3(1) of I.A.S. (Regulation of Seniority) Rules, 1954 provides that every officer shall be assigned year of allotment. Rule 3 (3 )(a) provides inter alia that the year of allotment of an officer appointed to the Service after the commencement of the1e rules, shall be-where the officer is appointed to the Service on the results of competitive examination, the year following the year in which such examination was held." Rule 3 ( 3 )(b) provides that the year of allotment of an officer shall be "where the officer is appointed to the Service by promotion in accordance with sub-rule (l) of rule 8 of the Recruitment Rules, the year of allotment of the junior-most among the officers recruited to the Service in accordance with rule 7 of those rules who officiated continuously in senior post from date earlier thaa the date of commencement of such officiation by the former." The proviso tor. 3(3)(b) Jays down that "the year of allotment of an officer appointed to the Service in accordance with sub-rule ( 1) of rule 8 of the Recruit-ment Rules who started officiating continuously in senior post from date earlier than the date on which any of the officer re-cruited to the Service in accordance with rule 7 of those Rules so started officiating shall be determined ad hoc by the Central Gov-ernment in consultation with the State Government concerned." Rule 5A authorises the making of regulations for fixing the seniority of special recruits. Rule 6 provides for preparation of gradation list of all officers borne on the cadre arranged in order of seniority.

Regulation 3 of the l.A.S. (Seniority of Special Recruits) Regulation, 1960 made under r. 5A of the Re~ulation of Senio-rity Rules fixes the seniority of special recruits. Rule 3(3) provides that "In the case of officers recruited by promotion from the State Civil Service under clause (b) of regulation 3 re1c' with regulation 9 of the Indian Administrative Service (Special Recruitment) Regulations. 1956, the year of allotment shall be fixed in accordance with the provisions of clause (b) of sub-rule (3) of rule 3 of the Indian Administrative Service (Regulation of Seniority) Rules, 1954."

The relevant provisions of the parallel Cadre, Recruitment, Pay and Regulation of Seniority Rules of the Indian Police Service were considered by this Court in P. C. Wadhwa v. Union of India('). There, the appellant was member of the Indian Police Service. He joined the Service in 1952 and was confirm-ed in 1953. In 1958 he was promoted to offici<!te in the senior time-scale as Additional Superintendent of Police at Ferozepore in place of the permanent incumbent who was on leave. In July 1964, he was served with charge-sheet and he submitted reply. Before the enquiry started he was reverted to his sub-stantive rank of Assistant Superintendent of Police. The rever-sjon was not due to the return of the permanent incumbent from leave or deputation or for any administrative reason. Other officers junior to him continued to officiate in the senior scale while he was reverted. His personal file revealed note by the Senior Superintendent of Police to the effect that regular en-quiry into his conduct would take long time and it was advis-able to revert him. He was not given any opportuntiy of show-ing cause a~ainst the action taken against him. He filed writ petition in the Higi' Court asking for the issue of -a writ quashing the order of reversion. The High Court dismissed the petition. On appeal, this Court set aside the order of the High Court and allowed the petition. This Court held that the reversion wa; m~dc- in contravention of Art. 311 of the Constitution. The maj< ·r''" '1c!d that the reversion was by way of punishment and a1,..1:,·:•c.i to reduction in rank and withholding of promotion on grounds which may be summarised thus : There is only one cadre in the Indian Police Service. person in the junior time-scale of the Service is as much cadre officer as one holding ~ post in the senior time-scale or post above the time-scale. The transition of member of the Service from one sca·e to another doe; not depend upon selection or the consideration of the com-parative merits of the officers in the junior scale inter se but only upon consideration of his seniority. Mudholkar, J. said that "the whole scheme of the rules indicates that person borne on the junio~ scale of pay has right to hold post on the seni~r scale of pay depending upon the availability of post and hts seniority in the junior scale of pay." The learned Judge added : "Despite the fact that he holds certain rank in the gradation list persons who also belong to the Indian Police Service and who were recruited to it sub~equent· to him have continued to hold or have been appointed to hold posts carrying salary in the senior scale. This would itself indicate that lhe action taken against him was by way of penalty or punishment. For, he has not only been reduced in rank but his promotion to the senior scale bas also been withheld."

ln this background, the petitioner says that he was deprived of his right to hold senior post during the period from April 2, 1952 up to November 17, 1956. We have found already that on April 2, 1952 there was no available vacancy in the senior post to which he should be appointed. The Madhya Bharat Cadre continued to be governed by the Extension to States Scheme until September 1954 when the Cadre, Recruitment, Pay and Regula-tion of Seniority Rules were made. The proviso to r. 9 of the Cadre Rules preserved the existing arrangements under the I.A.S. Extension to States Scheme for the holding of certain cadre posts by-non-cadre officers. On -rune 24, 1955, the strength of the Madhya Bharat cadre was revised and increased to 46. Respon-dents Nos. 14, 15 and 16 belonged to the Madhya Bharat State Se1vice. Respondent No. 14 was appointed on June 24, 1955 and respondents Nos. 15 and 16 were appointed on April 25, 1956 to senior posts against vacancie~ in the 25 per cent quota. Several non-cadre officers were appointed to fill vacancies in the senior posts under r. 9 of the Cadre Rules. Th~ petitioner was i:tot found suitab!e to fill vacancy in senior post until Novem-D ber 17, 1956.

The petitioner coniends that ( l) he had the absolute right to be appointed to vacancy in the senior posts on and after April 2, 1952, (2) the filling of the vacancies by non-cadre officers on the ground that he was not suitable was an infringement of his right and amounted to withholding of promotion and penalty within the meaning of r. 3 of the All India Services (Discipline and Appeal) Rules, 1955, (3) 75 per cent of the total number of senior posts was reserved exclusively for direct recruits and ( 4) in computing the 25 per cent quota under r. 9 ( 1 ) of the Recruitment Rules officers in Lists II and III and special recruits should be included. These contentions must be rejected.

Vis vis ancither cadre officer junior to him, cadre officer in the junior scale of pay has the right of promotion to post in the senior scale on the ground of seniority. This right is infring-ed if the junior cadre officer is promoted to fill vacancy in the senior scale, while he continues to hold post in the junior scale of pay. But he cannot claim the right to fill the vacancy if he is not suitable and no cadre officer junior to him is promoted to fill the vacancy. An officer in the junior scale of pay has no right to senior post as soon as he joins the Service. He may be appointed to senior post only when he is found suitable having regard to his length of service, experience and performance in the junior scale 0f pay: Rule 6A (2) of the Recru;tment Rules now makes explicit what was always implicit in r. 9 of the Cadre Rules.

Under r. 9( 1) of the Cadre Rules, senior cadre post may be filled by non-cadre officer if there is no suitable officer

~vailable for filling' the vacancy. Similar provision is to be found m paragraph 3 of the memorandum regarding constitution of the India.n .Adm.inistrative Service and paragraph 5 of the Indian Civil Adnun1strauve Cadre Rules, 1950. The appointment of non-cadre officer to cadre post under r. 9 (1) of the Cadre Rules :s temporary arrangement which may be terminated at any time when the Gov~rnnlent finds cadre officer suitable for filling the vacancy. Until the cadre officer is found suitable, non-cadre officer may be appointed to fill the vacancy in post in the seruor scale of pay. The cadre officer has no right to fill tile vacancy if he is not suitable. The filling of the vacancy by non-cadre officer tmder r. 9 does not infringe any right of the cadre officer nor does it amount to withholding of promotion or penalty within the meanini? of r. 3 of the. All India Services (Discipline and Appeal) Rules, 1955.The decision in P. C. Wadh1<·u's case(') is distinguishable. There, cadre officer in the junior scale of pay was promoted to officiate in post in the senior scale of pay and was thereafter reverted to his substantive post while other cadre officers junior to him continued to officiate in posts in the senior scale of pay. As against cadre officers junior to him, he had the right to hold the post in the senbr ~cale of pay. The reversion while cadre officers junior to ~ · ·: continued m the senior scale amounted to not only reduct'· . in rank but also withholding of promot!On. This j.s all th.· J'. C. Wadhwa's case(') decided. The fact in the present case are entirely different. The petitioner was not suit-able to fill the vacancies in the senior posts and non-cadre officers were appointed tO fill the vacancies under r. 9 of the Cadre Rules. No cadre officer junior to the petitioner was promoted to the cadre post before his promotion on November 17, 1956. Nor was he reverted after his promotion, while officers junior to him continued to hold senior posts. The petitioner was not reduced in rank nor was his promotion withheld. He had no right to fill vacancy in the senior posts or to draw salary in the senior scale between April 2, 1952 and November 17, 1956.

There is no merit in the contention that 75 per cent of the

total number of senior posts is reserved exclusively for direct r&-cruits. Under r. 9(1) of the Recruitment Rules, the number of persons recruited to senior posts under r. 8 of the Recruitment Rules by promotion or by selection cannot exceed 25 per cent of the total number of senior posts. The remaining 75 per cent of the senior posts may be filled by other recruits. Special recruits under r. 4 of the Recruitment Rules are appointed against the 75 per cent quota. Their appointments are not counted against the 25 per cent quota reserved for persons recruited under r. 8.

.A Rule 9(3 )(b) (iv) now expressly provides what was already implicit in r. 9 ( 1).

Paragraph 4(iv) oJ the I.AS. J:l.xtension to States Scheme pro-vided that the posts held by officers included in Lists II and III would be excluded from the cadre for the period they were held by those officers and would revert to the cadre as and when they :e ceased to be required for that purpose. The· posts held by the officers' in List III were excluded from the cadre until they retired and were not counted a)1:ainst the 25 per cent quota. The posts held by the officers in List II pending absorption in the service were excluded from the cadre. They were absorbed in the service as and when they were found fit. Rule 9(3) (b) (iii) provides that in computing the 25 per cent quota the appointments of officers from List II will be excluded.

·There were vacancies in the 25 per cent quota which were filled up by promotion of respondents Nos. 14, 15 and 16 from the Madhya Bharat State Service. Respondems Nos. 4, 6, 11, 12, 13, 17 and 18 were from the former Maclhya Pradesh State Service. Some of them were promoted to the Indian Administra-tive Service against the 25 per cent quota in the State cadres before the integration of the cadres on November l, 1956. No appointments were made between November 1, 1956 and Novem-ber 17, 1956 when the petitioner was appointed \o officiate in senior post Other respondents were appointed after November 17, 1956. None of the appointments is open to any challenge. It is surprising that the petitioner seeks to challenge the appoint-ments after long lapse of time. He has not given any adequate explanation as to the delay in filing the writ petition.The petitioner next challenges the seniority assigned to the respondents. In the gradation list, all the respondents are shown u senior to him Respondents Nos. 10, 11, 12 and 13 are special recruits and their senionty has been fixed under Regulation 3 ( 3) of the I.A.S. (Seniority of Special Recruits) Regulation, 1960 read with r. 3 ( 3) (b) of the Regulation of Seniority Rules, 1954. The other respondents are promotees and their seniority has been fixed under r. 3 ( 3 )(b) of the Regulation of Seniority Rlues and tlle proviso thereto.

The petitioner challenges the vires of r. 4 ( 3) of the Recruit-ment Rules under which the Central Govcrnm~,1t fran,ed •'.:: Special Recruitment Regulations. The Recruitment Rules were made under s. 3 of the All India Services Act, 1951. In D. S. Garewa/ v. The State of Punjab and Another([1]), this Court held that s. 3 was not bad on the ground of excessive delegation of legislative power. The petitioner submits that r. 4(3) of the

(I) [1939] Sapp I S.C.R.

Recruitment Rules is bad on the ground of excessive delegation of legislative power. Assuming that the doctrine of exce.55ive dele-gation ol legislative power applies to rules, we think that r. 4(3) docs n?~ suffer from the vice of excessive delegation. Rule 4(3) authorities the Central Government to make regulations for special recruitment. In making the regulations, the Central Government is to be guided by the exigencies of the service and the advice of the State Governments and the Union Public Service Commission. These authorities are the best judges of the appropriate regulations to be made in the matter. In the light of their expert knowledge they can udapt for this purpose the existing regulations for other methods of recruitment with suitable modifications or make other appropriate regulations having regard to the exigencies of the service. As matter of fact, the Special Recruitment Regulations 1960 framed under r. 4(3) have adapted for the purposes of special recriut:nent t~~ regulations for recruitment by competitive examination. promotion and selection with appropriate modifica-tions.

The petitioner next contends that r. 3 ( 3) ( b) of the Regula-tion of Seniority Rules makes unjust discrimination between promotec and direct recruit in the matter of seniority by arbi-trarily assigning lower year of allotment to promotee and is violative of Arts: 14 and 16 of the Constitution. This contention is devoid of merit. The seniority of direct recruits inter se and promotees inter se is fixed by r. 4. The object of r. 3(3) (b) is to fix the seniority of the promotees in relation to direct recruits. The promotees obtain promotion after long service in the State Civil Services. From the point of view of 1he promotee, his seniority should be counted from the date of his joining the State Civil Service. From the ]XJint of view of the direct recruit the senio-rity of the promotee should be counted from the date of his appoint-ment to the Indian Administrative Service. Ru!~ 3 (3 )(b) attempts to strike just balance between the conflicting claims. It gives the promotee the year of allotinent of the junior-most direct recruit officiating continuously in senior post earlier than the date of commencement of such officiation by the promotee. If no direct r~cruit was of!lciating continuously in senior post on an earlier date. the seniority of the promote'' ,., :!. '·~rmincd ad hoc. lo our opinion. the rule ic; ill'~ :1rJ-..:; :·,~:-y ::-.r d1-..crin1inatory and is not vio-lative of Arts. 14 and ! of the C<>~'titution.

The periti•>· <r next chalicnges the validity of Regulation 3(3) of the Special Recruitment Scnio•ity Regulatt0ns, 1960 on the ground that it offends Arts. 14 and 16 of the Constitution. Ac-cording to the petitioner. the relevant rules and regulations have set up an arbitrary double stan~ard for special reci:uit enlist~ by promotion because Regulation 3(3) of the Specrnl Recruit-

ment Seniority Regulations read with r. 3 ( 3) (b) of the Regulation of Seniorit)' Rules treats him as promotee for the purpose of seniority while r. 9(3) (b) (iv) of the Recruitment Rules treats him as direct recruit for the purpose of recruitment. There is no substance in this contention. Special recruits form dis-tinct class. They are neither direct recruits nor promotees. Rule 9 of the Recruitment Rules does not treat them as direct recruits. Regulation 3 ( 3) of the Special Recruits Seniority Regulations properly adopts the formula applicable to promotees for fixing the semority of special recruits enlisted by promotion, so that in the matter of seniority all officers recruited from the State Civil Service are placed on the same footing. The regulation is not arbitrary nor violative of Arts. 14 and 16 of the Constitution.

The seniority of the respondents was fixed in accordance wtih Regulation 3 ( 3) of the Special Recruitment Seniority Regula· tions, r. 3 ( 3 )(b) of the Regulation of Seniority Rules and the proviso thereto, and is not open to any challenge.

The writ petition is dismissed. There will be no order as to costs.

Petition dismissed.