{"id":30205,"date":"1966-08-22T00:00:00","date_gmt":"1966-08-21T18:30:00","guid":{"rendered":"https:\/\/www.legalindia.com\/judgments\/state-of-mysore-anr-vs-s-v-narayanappa-on-22-august-1966"},"modified":"2016-04-12T07:34:03","modified_gmt":"2016-04-12T02:04:03","slug":"state-of-mysore-anr-vs-s-v-narayanappa-on-22-august-1966","status":"publish","type":"post","link":"https:\/\/www.legalindia.com\/judgments\/state-of-mysore-anr-vs-s-v-narayanappa-on-22-august-1966","title":{"rendered":"State Of Mysore &amp; Anr vs S. V. Narayanappa on 22 August, 1966"},"content":{"rendered":"<div class=\"docsource_main\">Supreme Court of India<\/div>\n<div class=\"doc_title\">State Of Mysore &amp; Anr vs S. V. Narayanappa on 22 August, 1966<\/div>\n<div class=\"doc_citations\">Equivalent citations: 1967 AIR 1071, \t\t  1967 SCR  (1) 128<\/div>\n<div class=\"doc_author\">Author: Shelat<\/div>\n<div class=\"doc_bench\">Bench: Shelat, J.M.<\/div>\n<pre>           PETITIONER:\nSTATE OF MYSORE &amp; ANR.\n\n\tVs.\n\nRESPONDENT:\nS. V. NARAYANAPPA\n\nDATE OF JUDGMENT:\n22\/08\/1966\n\nBENCH:\nSHELAT, J.M.\nBENCH:\nSHELAT, J.M.\nRAO, K. SUBBA (CJ)\n\nCITATION:\n 1967 AIR 1071\t\t  1967 SCR  (1) 128\n CITATOR INFO :\n R\t    1979 SC1676\t (5)\n R\t    1985 SC1367\t (44)\n\n\nACT:\nMysore Civil Service Rules, 1958-Government Order dated 22nd\nSept. 1961--Local candidates entitled to have their services\nregularised  under  order-Break in service  after  1st\tJan.\n1960-Effect of.\n\n\n\nHEADNOTE:\nThe  respondent\t joined\t Class III  service  of\t the  Mysore\nGovernment  in 1958 as a local candidate.  According to\t the\nMysore\tCivil Service Rules, 1958 a local candidate meant  a\ntemporary  Government  servant not  appointed  regularly  in\naccordance  with the rules of recruitment to  that  service.\nOn September 22, 1961 the Mysore Government passed art order\nwhereby\t under\tsub-cl.\t (i)  of  cl.  2  local\t  candidates\nappointed before Dec. 31, 1959, were entitled to have  their\nappointments  regularised  subject  to\tcertain\t conditions.\nAccording to sub-cl. (ii) of cl. 2 of the Order the services\nof local candidates were to be regularised with effect\tfrom\nthe date of their appointment', from which their service was\ncontinuous provided they were in service on 1st January 1960\nand  continued to be in service at the time  their  services\nwere regularised.  Sub-clause (iii) said that local  service\nwould  count for purposes of leave, pension  and  increments\nbut not for purposes of seniority, and that only the service\nfrom  the date of regularisation of the appointment  in\t the\nparticular department would count for seniority.  Sub-clause\n(iv) laid down that breaks in service would not be  condoned\neven if such breaks were only for short periods.  There\t was\na  break of one day in the respondent's service on March  1,\n1961.  The Mysore Government terminated his service on\tJuly\n4,  1963.  The respondent filed a writ petition\t before\t the\nHigh  Court  claiming  that  he was  entitled  to  have\t his\nappointment  regularised  under\t the  aforesaid\t  Government\nOrder.\t The  High Court held that the requirements  of\t the\nOrder  were  that  a local candidate  was  entitled  to\t its\nbenefit\t if he joined service before Dec. 31, 1959, and\t was\nin  service on two dates, namely 1st January 1960  and\t22nd\nSeptember  1961.   On this view the High Court\tallowed\t the\nrespondent's  petition whereupon the State appealed to\tthis\nCourt.\nHELD : The High Court was wrong in its construction of\tsub-\ncl. (ii) of cl. 2 of the Order.\nOn a harmonious construction of sub-cl. (ii) with the  other\nsubclauses of cl. 2 its proper interpretation would be\tthat\nin  order  that\t the regularisation order  may\tapply  to  a\nparticular  case  the  local  candidate\t must  be  initially\nappointed prior to December 31, 1959, he must be in  service\non January 1, 1960 and continue to be in service without any\nbreak till the date of the order.  Since the service of\t the\nrespondent was not continuous during this period he was\t not\nentitled  to  regularisation of his  appointment  under\t the\nOrder. (133 G]\n\n\n\nJUDGMENT:\n<\/pre>\n<p>CIVIL APPELLATE JURISDICTION: Civil Appeal No. 1420 of 1966.\n<\/p>\n<p><span class=\"hidden_text\">129<\/span><\/p>\n<p>Appeal\tby special leave from the judgment and\torder  dated<br \/>\nOctober\t 21, 1965 of the Mysore High Court in Writ  Petition<br \/>\nNo. 2173 of 1964.\n<\/p>\n<p>S.   T. Desai, B. R. L. Iyenger and B. R. G. K.\t Achar,\t for<br \/>\nthe appellant.\n<\/p>\n<p>R.  B.\tDatar, Anil Kumar Sablok and B. P.  Singh,  for\t the<br \/>\nrespondent.\n<\/p>\n<p>The Judgment of the Court was delivered by<br \/>\nShelat, J. This appeal by special leave is against the Judg-<br \/>\nment  and  Order of the High Court of  Mysore  quashing\t the<br \/>\nmemorandum  dated July 4, 1963 whereby the State  Government<br \/>\nterminated the service of the respondent.  The only question<br \/>\narising\t in  this  appeal is one of  interpretation  of\t the<br \/>\nGovernment Order No. GAD 46 SRR, dated September 22, 1961.<br \/>\nThe respondent entered government service as an\t officiating<br \/>\ncomputor in the Government Press on March 11, 1958 and\tcon-<br \/>\ntinued\tin  that  post\tuntil September\t 1,  1958.   He\t was<br \/>\nthereafter  appointed  from  time  to  time  in\t officiating<br \/>\ncapacity  in different posts though in the  same  department<br \/>\nuntil  December\t 3, 1959 when he was appointed\tas  a  proof<br \/>\nexaminer.   He\tcontinued in that post\tuntil  February\t 28,<br \/>\n1961.\tAccording to the appellants there was break  in\t his<br \/>\nservice\t on March 1, 1961 as his service was  terminated  on<br \/>\nFebruary  28, 1961 and he was once again appointed on  March<br \/>\n2,  1961  as  a\t second\t division  clerk  (industrial.).  He<br \/>\ncontinued in that post until July 4, 1963 when the  impugned<br \/>\norder  terminating  his service was passed.   The  first  of<br \/>\nMarch  1961  on\t which it was said there was  break  in\t his<br \/>\nservice was a holiday.\n<\/p>\n<p>There is no dispute that the respondent was throughout work-<br \/>\ning in officiating capacity and was a &#8220;local candidate&#8221; like<br \/>\nseveral other such employees appointed by direct recruitment<br \/>\nby  Government instead of regular recruitment by the  Public<br \/>\nService Commission of the State as required by the rules  of<br \/>\nRecruitment.\n<\/p>\n<p>Rule 8(27A) of the Mysore, Civil Service Rules, 1958 defines<br \/>\na  &#8220;local  candidate&#8221;  as  meaning  a  temporary  Government<br \/>\nservant not appointed regularly in accordance with the Rules<br \/>\nof  Recruitment\t to that service.  Rule I(A) of\t the  Mysore<br \/>\nGovernment  Servants&#8217; (Seniority) Rules, 1957 provides\tthat<br \/>\nthose  rules do not apply to a person appointed as  a  local<br \/>\ncandidate  so  long as he is treated as\t such.\t It  further<br \/>\nprovides   that\t  where\t his  appointment  is\ttreated\t  as<br \/>\nregularised  from  any date, his seniority- in\tthe  service<br \/>\nshall be determined in accordance with these rules as if  he<br \/>\nhad been appointed regularly in accordance with the Rules of<br \/>\n<span class=\"hidden_text\">130<\/span><br \/>\nRecruitment to the post held by him on that day.  Since\t the<br \/>\nappointment  of\t local\tcandidates as in  the  case  of\t the<br \/>\nrespondent  was\t not made by or through the  Public  Service<br \/>\nCommission  as required by the Rules, the  State  Government<br \/>\nwith a view to regularise such appointments passed the\tsaid<br \/>\norder dated September 22, 1961.\n<\/p>\n<p>\t      The material portion of the said order runs as<br \/>\n\t      follows 2.\n<\/p>\n<p>\t      (i)  All\tappointments  to  Class\t III  Direct<br \/>\n\t      Recruitment Posts made by the local appointing<br \/>\n\t      authorities,  both  in  the  old\tMysore\tarea<br \/>\n\t      (including Bellary District) and in the  other<br \/>\n\t      integrating  areas  up to 31st  December\t1959<br \/>\n\t      (inclusive) may be regularised subject to\t the<br \/>\n\t      condition that the candidates were within\t the<br \/>\n\t      prescribed  age limits and had  the  requisite<br \/>\n\t      qualifications  at the time of  their  initial<br \/>\n\t      appointments;\n<\/p>\n<p>\t      (ii) The services of local candidates shall be<br \/>\n\t      regularised with effect from the date of their<br \/>\n\t      appointment,  from  which\t their\tservice\t  is<br \/>\n\t      continuous  provided they were in\t service  on<br \/>\n\t      1st January 1960 and continue to be in service<br \/>\n\t      at the time their services are regularised.<\/p>\n<p>\t      (iii)   The  local  service  will\t count\t for<br \/>\n\t      purposes\t   of\t  leave,     pension\t and<br \/>\n\t      increments&#8230;&#8230;&#8230;&#8230; but not for purposes of<br \/>\n\t      seniority;  only the service from the date  of<br \/>\n\t      regularisation  of their appointments  in\t the<br \/>\n\t      particular    department\t will\tcount\t for<br \/>\n\t      seniority;\n<\/p>\n<p>\t      (iv)  Breaks  in service will not be  condoned<br \/>\n\t      even  if\tsuch  breaks  are  only\t for   short<br \/>\n\t      periods.\n<\/p>\n<p>In the Writ Petition filed by the respondent against the im-<br \/>\npugned order dated July 4, 1963 terminating his service\t the<br \/>\nrespondent  raised  two points :&#8211;(1) that though he  was  a<br \/>\nlocal candidate appointed from time to time to the aforesaid<br \/>\nposts he was entitled to have his service regularised  under<br \/>\nthe  said  order and (ii) that as he was entitled to  be  so<br \/>\nregularised  he\t was  also entitled  to\t the  protection  of<br \/>\nArticle\t 311(2)\t of  the  Constitution.\t  Consequently,\t his<br \/>\nservice could not be terminated in the manner it was done by<br \/>\nthe impugned order.  The contention of the State  Government<br \/>\non  the other hand was that the order of regularisation\t did<br \/>\nnot  apply  to\tthe  respondent\t as  his  service  was\t not<br \/>\ncontinuous as required by the said order and therefore there<br \/>\nwas no question of Article 311 being applicable to his\tcase<br \/>\nand the State Government was entitled therefore to terminate<br \/>\nhis service by the said order of July 4, 1963.\n<\/p>\n<p><span class=\"hidden_text\">131<\/span><\/p>\n<p>The  High  Court  on an interpretation of  the\tOrder  dated<br \/>\nSeptember 22, 1961 repelled the Government&#8217;s contentions and<br \/>\nheld  that the respondent was entitled to have\this  service<br \/>\nregularised  with  effect  from the  date  his\tservice\t was<br \/>\ncontinuous prior to December 31, 1959 and that being so, the<br \/>\norder terminating his service on the erroneous basis that he<br \/>\nwas  a\ttemporary  government servant not  entitled  to\t the<br \/>\nbenefit of the aforesaid regularisation order was  violative<br \/>\nof   Article  311.   This  interpretation  meant  that\t the<br \/>\nappointment  and service of the respondent were not only  to<br \/>\nbe  regularised but as a result of such\t regularisation\t the<br \/>\nrespondent  had to be treated as a permanent  servant  being<br \/>\nentitled  to  the protection of Article\t 311(2).   The\tHigh<br \/>\nCourt  arrived at this result on the interpretation it\tgave<br \/>\nto  the\t portion  of the said Order which we  have  set\t out<br \/>\nabove.\t The  High  Court observed that\t sub-clause  (2)  of<br \/>\nclause 2 of the said Order provided for the fixation of\t the<br \/>\ndate  with effect from which the appointment was  deemed  to<br \/>\nhave  been made permanent and that the second part  of\tthat<br \/>\nsub-clause  laid  down\tthe conditions\twhich  if  satisfied<br \/>\nentitled  the respondent for regularisation.   According  to<br \/>\nthe High Court the necessary conditions for such regularisa-<br \/>\ntion  were  :-(a)  that the local  candidate  should  be  in<br \/>\nservice\t on January 1, 1960 and (b) that he should  continue<br \/>\nto  be\tin  service  at\t the time  his\tservice\t was  to  be<br \/>\nregularised.  The High Court further observed that what sub-<br \/>\nclause (2) required was &#8220;not continuity of service but\tthat<br \/>\nthe services be continued at the time of the regularisation&#8221;<br \/>\nand that the intention of the Government was not to lay down<br \/>\nthe  condition\tof continuous service between  December\t 31,<br \/>\n1959  and  the date of the said Government order.   It\tthen<br \/>\nobserved<br \/>\n\t      &#8220;When the Government order by a fiction of the<br \/>\n\t      law  provided for regularisation\tof  services<br \/>\n\t      with  effect  from a date anterior  to  31-12-<br \/>\n\t      1959,  the  local candidates who\tsatisfy\t the<br \/>\n\t      qualifications  and conditions  prescribed  by<br \/>\n\t      sub-paras (i) and (ii) are deemed to have been<br \/>\n\t      permanently appointed with effect from a\tdate<br \/>\n\t      anterior\tto  31-12-1959.\t  Where\t the   local<br \/>\n\t      candidate\t   possesses   the    qualifications<br \/>\n\t      prescribed  in sub-para (i) of para 2, if\t his<br \/>\n\t      initial  appointment  was made  before  31-12-<br \/>\n\t      1959,  he is entitled to have his\t appointment<br \/>\n\t      regularised provided he was in service on\t 1st<br \/>\n\t      January  1960 and is continued in\t service  at<br \/>\n\t      the  time\t of the\t G.O.,\tnotwithstanding\t any<br \/>\n\t      break in service between 31-12-1959 and  22-9-<br \/>\n\t      1961.&#8221;\n<\/p>\n<p>The  High  Court  also held that sub-clause  (iv)  on  which<br \/>\nreliance was placed by the Government had reference to break<br \/>\nin  service  before  December 31, 1959 and  not\t during\t the<br \/>\nperiod subsequent to that date.\t Thus, according to the High<br \/>\nCourt if a local candidate<br \/>\n<span class=\"hidden_text\">132<\/span><br \/>\nwas  initially appointed prior to December 31, 1959 and\t was<br \/>\nin service on January 1, 1960 and also on September 22, 1961<br \/>\nhe was entitled to the benefit of the regularisation  order.<br \/>\nSo long as he was in service on the two termini his  service<br \/>\nwould  have  to be regularised irrespective of\twhether\t his<br \/>\nservice during the interval was continuous or not.  The High<br \/>\nCourt also equated regularisation with permanence of service<br \/>\nand therefore held that once a local candidate&#8217;s service was<br \/>\nregularised he had to be treated as a permanent servant.<br \/>\nBefore we proceed to consider the construction placed by the<br \/>\nHigh  Court on the provisions of the said order we may\tmen-<br \/>\ntion that in the High Court both the parties appear to\thave<br \/>\nproceeded   on\tan  assumption\tthat  regularisation   meant<br \/>\npermanence.  Consequently it was never contended before\t the<br \/>\nHigh  Court that the effect of the application of  the\tsaid<br \/>\norder  would mean only regularising the appointment  and  no<br \/>\nmore  and  that\t regularisation\t would\tnot  mean  that\t the<br \/>\nappointment  would have to be considered to be permanent  as<br \/>\nan   appointment  to  be  permanent  Would   still   require<br \/>\nconfirmation.\tIt seams that on account of this  assumption<br \/>\non  the\t part  of both the parties the\tHigh  Court  equated<br \/>\nregularisation with permanence.\n<\/p>\n<p>We are however not called upon in this appeal to decide\t and<br \/>\nwe do not decide that question as Mr. Desai on behalf of the<br \/>\nState Government assured us that the Government bad come  in<br \/>\nappeal only in its anxiety to have the order interpreted  by<br \/>\nthis  Court as the construction placed by the High Court  on<br \/>\nthe   said  order,  if\tupheld,\t would\t have\tconsiderable<br \/>\nrepurcussions on the prospects of other State employees.  He<br \/>\nalso assured us on behalf of the State Government that since<br \/>\nthe  break  in\tthe service of\tthe  respondent\t during\t the<br \/>\nmaterial  time\twas only of one day, viz.,  March  1,  1961,<br \/>\nassuming there was such a break, the government would not do<br \/>\nanything to adversely affect his service and would not\ttake<br \/>\naway  the benefit which he acquired as a result of the\tHigh<br \/>\nCourt&#8217;s\t judgment,  even  if we were to\t disagree  with\t the<br \/>\ninterpretation placed by the High Court on the said Order.<br \/>\nComing now to the Order, sub-clause (i) of clause 2 provides<br \/>\nthat   all  appointments  to  Class  III  posts\t by   direct<br \/>\nrecruitment   made  up\tto  December  31,  1959\t should\t  be<br \/>\nregularised provided the candidates satisfied the conditions<br \/>\nas  to age and qualifications at the time of  their  initial<br \/>\nappointment.  The controversy arises ,on the construction of<br \/>\nsub-clause (ii).  That sub-clause provides that the services<br \/>\nof such candidates shall be regularised with effect from the<br \/>\ndate  of  their appointment from which\ttheir  services\t are<br \/>\ncontinuous provided they were in service on January 1,\t1960<br \/>\nand  -continue to be in service at the time  their  services<br \/>\nare regularised.  It is clear from the express words used in<br \/>\nthis sub-clause that<br \/>\n<span class=\"hidden_text\">133<\/span><br \/>\ncontinuity of service from January 1, 1960 until the date of<br \/>\nthe order is a condition prescribed for regularisation.\t  In<br \/>\nother words, a candidate claiming the benefit of this  order<br \/>\nhas  to\t satisfy that he was initially\tappointed  prior  to<br \/>\nDecember 31, 1959, that he was in service on January 1, 1960<br \/>\nand  continued in that service, till the date of the  order,<br \/>\ni.e.,  September 22, 1961.  This construction finds  support<br \/>\nfrom  sub-clause  (iii) which provides\tthat  local  service<br \/>\nprior to regularisation would be counted for the purposes of<br \/>\nleave,\tpension and increments though not for  seniority  as<br \/>\nseniority  was\tto  be\tfixed from  the\t length\t of  service<br \/>\ncalculated from the date of regularisation.  It is  manifest<br \/>\nthat  unless the local service was continuous  such  service<br \/>\ncould  not  be\ttaken  into account  for  the  purposes,  in<br \/>\nparticular of pension and increments. How would\t increments,<br \/>\nfor  example,  be granted unless the service prior  to\tsuch<br \/>\nincrements  was\t continuous ? The same\tconsideration  would<br \/>\nalso  apply in the case of pension.  It had therefore to  be<br \/>\nprovided as has been done in sub-clause (iv) that a break in<br \/>\nservice would not be condoned for a period howsoever  short.<br \/>\nContinuity  of\tservice is thus a condition  for  both\tsub-<br \/>\nclauses 2 and 3. The High Court was therefore in error\twhen<br \/>\nit   said   that   sub-clause  (iv)  did   not\t relate\t  to<br \/>\nconsiderations\t under\tsub-clause  (ii)  or  that  it\t had<br \/>\nreference  only\t to a break in service before  December\t 31,<br \/>\n1959.\tThe High Court was also in error when  it  construed<br \/>\nsub-clause (ii) to mean that the only thing it required was,<br \/>\nthat  the candidate had to be appointed initially  prior  to<br \/>\nDecember  31, 1959 and that he had to be in service  on\t the<br \/>\ntwo dates,. viz., January 1, 1960 and September 22, 1961 and<br \/>\nthat the service during the interval need not be continuous.<br \/>\nIf  that construction were to be upheld it would  result  in<br \/>\ninjustice, for local candidates. not recruited regularly and<br \/>\nnot  in continuous service provided they were in service  on<br \/>\nthe two relevant dates, viz., January 1, 1960 and  September<br \/>\n22,  1961,  would get seniority over  candidates.  regularly<br \/>\nappointed  after  December  31, 1959 and  whose\t service  Is<br \/>\ncontinuous.   Such a result would manifestly be both  unjust<br \/>\nand  improper  and  could  hardly  have\t been  contemplated.<br \/>\nTherefore  the proper interpretation would be that in  order<br \/>\nthat the regularisation order may apply to a particular case<br \/>\nthe  local, candidate must be initially appointed  prior  to<br \/>\nDecember 31, 1959, he must be in service on January 1,\t1960<br \/>\nand  continue  to be in service without any break  till\t the<br \/>\ndate of the said order.\t If his service is regularised,\t his<br \/>\nservice\t from  the  date of  such  regularisation  would  be<br \/>\ncounted\t for seniority as against others who were  recruited<br \/>\nproperly  under the Rules of Recruitment.   Under  subclause\n<\/p>\n<p>(iii)  however if the service is continuous from January  1,<br \/>\n1960 to September 22, 1961, such service is to be taken into<br \/>\naccount\t for purposes of leave, pension and  increments\t but<br \/>\nnot  for purposes of seniority.\t The construction  which  we<br \/>\nare inclined to adopt thus harmonises all the provisions  of<br \/>\nthe Order and besides.\n<\/p>\n<p><span class=\"hidden_text\">134<\/span><\/p>\n<p>results in fairness to all the local candidates appointed by<br \/>\ndirect recruitment whether regularly or otherwise.  For\t the<br \/>\nreasons aforesaid the construction placed by the High  Court<br \/>\ncannot be sustained.\n<\/p>\n<p>Though the construction which we are inclined to adopt is in<br \/>\nsupport of the stand taken by the State Government, in\tview<br \/>\nof  the\t assurance  given  by  counsel\ton  behalf  of\t the<br \/>\nGovernment  that  this construction should  not\t affect\t the<br \/>\nregularisation\tof the respondent&#8217;s service and\t its  having<br \/>\nbeen  considered by the High Court as permanent, it  is\t not<br \/>\nnecessary  to  interfere with the order passed by  the\tHigh<br \/>\nCourt.\t The appeal consequently is dismissed.\t There\twill<br \/>\nhowever be no order as to costs.\n<\/p>\n<p>\t G.C.\t\tAppeal dismissed.\n<\/p>\n<p><span class=\"hidden_text\">135<\/span><\/p>\n","protected":false},"excerpt":{"rendered":"<p>Supreme Court of India State Of Mysore &amp; Anr vs S. V. Narayanappa on 22 August, 1966 Equivalent citations: 1967 AIR 1071, 1967 SCR (1) 128 Author: Shelat Bench: Shelat, J.M. PETITIONER: STATE OF MYSORE &amp; ANR. Vs. RESPONDENT: S. V. NARAYANAPPA DATE OF JUDGMENT: 22\/08\/1966 BENCH: SHELAT, J.M. BENCH: SHELAT, J.M. RAO, K. SUBBA [&hellip;]<\/p>\n","protected":false},"author":1,"featured_media":0,"comment_status":"open","ping_status":"open","sticky":false,"template":"","format":"standard","meta":{"_lmt_disableupdate":"","_lmt_disable":"","_jetpack_memberships_contains_paid_content":false,"footnotes":""},"categories":[30],"tags":[],"class_list":["post-30205","post","type-post","status-publish","format-standard","hentry","category-supreme-court-of-india"],"yoast_head":"<!-- This site is optimized with the Yoast SEO plugin v27.3 - https:\/\/yoast.com\/product\/yoast-seo-wordpress\/ -->\n<title>State Of Mysore &amp; Anr vs S. V. 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