TRILOKI NATH & ANR. versus STATE OF JAMMU & KASHMIR & ORS.

TRILOKI NATH & ANR.

STATE OF JAMMU & KASHMIR & ORS.

April 23, 1968

(M. HIDAYATULLAH, C.J., J. C. :iHAH, S. M. S!KRI, V. RAMASWAM! AND V. BHARGAVA, JJ.]

Co11sri1111ion of India, 1950 Art. 16--Backward cla.~s-Reservation of posts 011 the basis of religion and place of residence-When protected by Art. 16(4).

The pe.titioncrs filed \Vriit petition in this Court claiming that the respondent Staitc had discriminated against them in the matter of promo· tion to the gazetted cadre of the Education Department on grounds of religion and place of reside.nee and thus violated Art. 16(2) of the Constitution. The. case that junior officers were pron1oted to the gazetted cadre over officers senior to them on the ground solely that they-the junior members-belonged to the Muslim community or that they were Hindus belonging to the Jan1mu province of the State, was not denied by the State, but, was sought to be justified on the ground that the State had acted in consonance with the. principles of Art. 16(4) on 1the basis that Yluslims as community formed backward class in the State, and similarly, Hin.dus from the Jammu province formed backward com~ munit)\ and that they were not adequately represented in the services. of the State.

HELD : The expression 'backward class' is not used as synonymous \\·ith 'back\vard caste' or 'back\vard community'. The expression 'class' in its ordinary connotation may mean homogcnous section of the people grouped together because of certain likenesses or common traits, and \Vho arc identifiable by some common attributes such as status, rank, occupation_. residence in locality. race, religion and the like; but, for purposes of Art. 16(4) in determining whether section forms class, test solelv based on caste. community, race, relh?ion, sex, descent place of birth or residence cannot be ·adopted. because it \vould directlv offend the Constitution. The members of an entire caste, or community may, in the social, economic and educational scale of values at given time, be backward and may, on that ·account be treated as backward class. blllt that is not because they are members of caste or community, but because they form clas.<. [105 F-H]

In the present case, the State has not produced any evidence to show that any provision \Vas made for reservation of appointments or posts in. favour of any backward class of citizens. On the other hand, selec-.::ion of candidates seems to have been made merely to secure adequate representation of such elements as were not adequately represented in the services. Therefore, when the State proceeded not to make reser-vations in. favour of any backward class, but to distribute ithc total . num~ be·r of posts or appointments on the basis of community or place of residence. no reservation. permitted by Art. 16(4). can be said to have been made. and the implementaition of such policy would be contrary to' the constitutional guarantee under Art. 16(1) and (2). [106 A-B. F--G: 107 A-Cl

ORIGINAL JURISDICTION : Writ Petition No. 107 of 1965.

Petition under Art. 32 of the Constittuion of India for the enforcement of fundamental rights.

M. C. Setalvad, Na1111i1 I.al ;u1d R. Gopalakris/111a11, for the petitioners.

C. K. Daphtary, Attorney-General, M. S. K. Saw·i, R. If.

Dlzebar and R. N. Sachtiley, for respondents Nos. I and 2.

The Judgment of the C<mrt wa> delivered by

Shah, J.-By order dated December 15, 1966, this Court

called upon the High Court of J ammu & Kashmir to '"gather the necessary material, such as, the total population of the entir.: State, the breakup tigurcs of the two provinces, the strength of d1ffcrem communities and the extent of their social and economic backwardness and the criteria applied by the State in that regard ... and to make report in that behalf. The report has now been submitted to this Court together with copies of the evidence oral and documentary produced by the parties. It is unfortunate that the learned Judge who heard the matter did not record his opinion on the evidence. We do not, however, on the view we take, deem it necessary to send back the papers for recording lhc opinion of the High Court on the evidence led by the parties pur;uant to the previous order.

The petitioners had by the writ petition claimed lhat in dec-lining to promote them and others similarly circumst;mccd to the gazetted cadre, the State had "acted purely on communal basis inasmuch as senior members of the Service belonging" to one community had been placed below the junior-most members of other communities only on the basis of their respective commu-nity and on the basis of residence in locality, and had thereby denied the guarantee of equality in matters of employment and appointment lo the gazetted cadre of the Educ<ilion Department under Art. 16 of the Constitution. By cl. (I) of Art. J 6 equality of opportunity in matters relating to employment or appointment between members of the same class is guaranteed by positive injunction : cl. (2) enjoins the State not to dis-criminate against citizens in respect of any employment or office on the ground of. race, religion. caste, sex, descent, place of birth or residence. Clause ( 4) provides limited exception to the operation of the other clauses of Art. 16 : it authorises the State to make provisions for reservation of appointments or posts in favour of backward classes of citizens. which are not adequately represented in the services under the State.

The petitioners claimed that they had been discriminated agains1 in the matter of promotion to the gazetted cadre. solely on the ~round of religion and place of residence. The case that junior officers were .promoted to the gazetted cadre over officers senior to them on the-ground solely that they-the junior members -belon.~cd to the Muslim community or that they were Hindus

belonging to the Jammu province of the State of Jammu & Kashmir was not denied. But this prejudicial treatment of_ senior officers was sought .to be supported on the plea that the State had acted in consonance with the principles of cl. ( 4) of Art. 16 of the Constitution. It was the case 'Of the State that Muslims as community in the whole of the State of Jammu & Kashmir fonned backward class of citizens and they were not adequately represented in the services under the State : similarly Hindus from the province of Jammu formed backward community and were not adequately represented in the services of the State, ·and on that account reservation in the matter of appointments or posts and promotions in the services of the State was made in respect of those classes. Clause ( 4) of Art. 16 undoubtedly empowe(l; the State to make reservation of appointments or posts in favour of any backward. class of citizens so as to give the class an ade-quate representation in the services under the State. _ The provi~ sion making such reservation need not be by statutory enact-ment : it may be made by an executive order or direction. . Bl\l there is ·not even formal executive order expres~ly dealing. with reservation of posts and appointments in the Education Depart-ment. On behalf of the State it is claimed t):iat as matter of State policy, in making appointments and promotions, reserva'-. lions in fact have been n;iade by the State as alleged by the peti-_tioners with some variations as to percentage reserv.ed for the Hindus from the province of Jammu, No opinion need be e)\--pressed in this case on the question whether provision unde_r Art. 16 ( 4) is not effective, unless it is made by legislation, or _by an executive order formally published.

Article 16 in, the first instance by cl. (2) prohibits discrimi-n~tion on. the ground, inte!" alia, of reli~ion, race, caste, place of -birth, residence and pefllllts an exception .to be made in the · matter of reservation in favour of backward classes of citizens. The expression "backward class" ~ not used as ~onymeius· with "backward caste" or "backward community".· -The members .of -an entire caste or communify may in the social, economic-- and educational scale of values at given time be backward and· may ·on that account be treated as backward class, but that iS not because they are members of. caste or community, but because they form class. In its ordinary connotation -the expressiQ!l "class" means homogeneous section of the people grouped to-gether because of certain likenesses- or commotf traits, and· who are identifiable by some common atrributes such· as status ·rank. occupation, resid.ence in locality, race, religion and the . like. u But for the -purpose ·ef Art. 16 ( 4) in determining whether sec-tion forms class, test solely based on caste; -community, race, religion, sex, -descent,. place of birth- or residence cannot ·be adopted, bepause j.t "\V()Uld directly pffe_n<l t_l)e· Constit'l!tion. LIO Sup. C.l./68-8 -.· In the voluminous evidence produced before the High Court fonnal order making provision for reservation of appoint· ments or posts in favour of any backward class of citizens dOC6 not find place. The only evidence to which our attention has been invited is the statement of Malik Ghulam Nabi, who deposed "that the policy laid down by the Government in matters of the employment to the· State services is that 50% of the vacancies are reserved for the Muslims of Kashmir (for the entire Sta:e). Out of the remaining 50%, 40% arc reserved for the Jammu Hindus and I 0 per cent for the Kashmiri Hindus. There are number of Government orders by which this policy has been laid down, but due to the short time at my disposal, I have been able to get only one copy of such order, which is signed by the Chief Secretary whose handwriting I know and identify". In cross-examination Malik Ghulam Nabi stated that the order pro-duced by him applied to all kinds of services under the State and it was "being implemented even now and was still in force''. The witness was unable to speak to the criteria on the basis of which the order was issued. The order of which copy was produced by Malik Ghulam Nabi related to the promotion to the pests of Superintendents in the Civil Secretariat and other offices. It purpons to be record of the decisions taken by the Council of Ministers in the matter of promotion of Superintendents in the Secretariat. It was recorded in paragraph 4 of the order that Selection Board consisting of four Secretaries to the Government was set up and they were asked "to prepare Select List on the basis of merit-cum-seniority, keeping in view the policy of ade-quate representation of such clements as are not adequately re· presented in the services and to pay due regard to Provincial pro-portions". There is no reference in any of the clauses of the order to selection of officers on the basis that they belong to back-ward classes. The injunction to the Secretaries to select candi-dates "keeping in view the policy of adequate representation of such elements as were not adequately represented in the services", is not provision making reservation of appointments or posts in favour of backward classes. Selections made, assuming that similar orders were passed enjoining the making of promotions to the gazetted cadre in the Educational Service, could not be deemed to have been made on the basis of backwardness of the classes to which they belonged.

The State of Jammu & Kashmir had, it is admitted, from time 10 time framed lists of backward communities : that is evident from Ext. Z-3 which is list of classes who are regarded by the State as backward. But it is not claimed that in making promo-tions to the gazetted cadre in the Educational Service, the autho-rities acted in pursuance of the List Ext. Z-3. As already ol>-servcd, the nonnal r,µle contemplated by the constitutional provi-

sion is equality between aspirants to public employment bq.t in view of backwardness of certain classes it would be open to the Siate to make provision for reservation of appointments or posts in their favour. When the State proceeds not to make re-servations in favour of any backward class, but to distribute tjie total number of posts or appointments on the basis of community or place of residence, no reservation permitted by cl. ( 4) of Art. 16 can be said to be made. In effect the State policy whic)l Malik Ghulam Nabi spoke to was policy not of reservation of some appointments or posis : it was scheme of distribution of all the posts communitywise. Distribution of appointments, posts or promotions made in implementation of that State policy is contrary to the constitutional guarantee under Art. 16 ( 1) and (2) and is not saved by cl. (4).The promotions granted to respondents 3 to 83 are accord-ingly declared contrary to the provisions of Arts. 16(1) and {4) of .the/Constitution and therefore void. This will not however prevent the S.tate from devising scheme, consistent with the constitutional guarantees, for reservation of appointments, posts or promotions in favour of any backward class of citizens which in the opinion of the State is not adequately represented in the services under the State. The petitioners will be entitled to their costs of the petition including the costs of the hearing which culmi-nated in :the interlocutory order, and the costs incurred before the High Court.

Petition allowed.