DAYARt.\1 ASANAND GURSAHANf .. v. STATE.OF ~AHARASHTRA ~ND omERS _

703 A

February 22. 198-l

Htm!xly Ju.!lclul S•r•ft;~ Rtrml;"'"" Rults l9~6.·Sub .clauu (6) of ddu._ (1) . •I s,lt ml~ (2) nf Rult S. sropt of-S1·niur/1,v--F,,, tlu: p1.1rpoie1 of .J~uit•rity In 1ht . 111l·t of /Jhtrfri Jmtg~s, M·h~tllt>f th~ p~r/ml durMx wlrL-h onC' lind M'OrA.t·ii ~Hur A.wS.. D r

I fJnt JuJr~ c. ould. bt- rtr.k.tm~d- RiJtfrl to bt po.11C'Cf as till J~~.~pt!ct;,."C Judye an,: Enrilf,_ INtft tath·~ .sofrtf)" nn,/ ol/olll;ances m 1ltt sd~clit.m' grrulf-·Sdt-'ltiun Grod,. l'lhtth~r • · tttpnratt trodr, · j' " The judid~l ..,..ice or tho Sutte or ~hhar,htra consi>l3 or tWO brnn<:h<'- E ..t~J<Iy, (i) the Junitlr Branch und (ii) the Scnl<>r nranch. Tbc Junior Dron<:h con· 0"' of th, followins. Oa\< I Officers~(i) J~Jj\es of l~e Small C>u..._, Courts at places Ot~er th~n llumbay. (ij) Chil. Jude;<!! (Senio r ni\i; ion). (iit) Judge.• or the Sn>a~l • . r

I C.u101 Coun• at llomb1y and Mclropohtnn M"1~i ·Jrat<'i ood (ov) Ctvol Judges puno- ,. I .: or 1)11'i\ion) ~"I Judicial M:Jg~<lrnlcs o f the FiNI Ci:J.«. The Senivr lfranch consisl> . i · o_f(i) D<<trict JuJs~ (ii) the Principal Jud&c anJ"Jud1:es ol lloml'lY City Civil Court, l · l~u) the C.'hicr Judge aod the Addl. ChicrJ ud&e of th; Stroll Causes Court, llomblY F frvl_oh¢ Chief Pre;id~ncy Mngi>tr:tte and tho Additio~tJI Chief (>r.,.;i,i~ncy M~gistratc. . . a...b.y, and (v) the A"i'tant Jud~···· The•• is no separate cadre of !ICI«:tton gmdc l)i<trict Jud~cs or or ln,pc:ctin" Pi~trict J~d~~< rcfan:d to in tho Rules whi<h are lt • fr.mcj u~der tho proviso' lo Article J09 or the Coo,tituuon. 'fllo IIC'IIIo of I"Y of :; nt.trict Jud~ rriur IO July I I Q52 w... R>. 900.50·1(l('~I600-50-ISOO•. !; , • \ G· 1 Oo the roconomend,;·tion of the 1-li~h Cuurl, the Sl3to Go,ernrocnl I''""'' two i 'tlolutions one on _ . und anoth.er 0 ,1 July ~0. 1974 S~~nclioning one post 21 10 1963 r• ·UII~fflhe former with cfTcct from J-7-6:! ond fi,e po;l> UllU~f thO lalt<f Witl"f clfcct from ht AU¥\I<t 1?74 of Oi;trici Ju,l~'"' in' tht S.;lcetiun G:~de of Rs. I 800-100:

2000. which i' ,pccif~~.:ally stated to '"'a l'l rt or the pay scale of~~· 900-1800 appli· Cltble to the codre of District Judge•.. Conoequont upon the l't\'ISIOn P<lY ~~.. or

704 -' SUP'REME COURT REPORTS ' [1984] 2 s.c.R.

A .-.· ·of officers of the cadre of the.Ihdian Administrative Service the State Government ~odified the pay sca~e of the selection grade District Judges ~ith effect fro IT! jam,;ary, ..... 1, 1973 by· the resolution· dated August 21, 1975 revising the Selection"Grade Pay' scale to one of 2000-125-2250. By its eariicr Resolution dated 23-9"1969, the Govern- ment also sai1ction_ed five temporary posts ~f District Judges in the ~am~ scale of. Rs. ~00- fSOO.for inspection of su~ordinate Courts and t~ling the' problem of cor- ruptton. 1he High Court had laid down certain guidelines for posting a District B Judge a·s-an Inspecting District Juuge and they art< (i) that the '6istrict Judge sl1ould ' have put in. at least three yeats as District. Judge arid should have worked as such i~·any of the districts, (ii)..thaJ hls administrative capacity should be rciativcl:r~ high .r. - and (iii) that he should have a rea~onable~ngth 'of service ahead of him as a District Judge till his retirmcnt. · -~ ' '' f . (l ,. s The appellant wa.s enrolled as an Advocate on December 1:4, 1951. 11_1 respon·sc to the Notification inviting _app1ication5 for the purpose of recruiting rn~mber of the B:tr directly as District JtJdges under Rule 5(2) {I) (b) of the Rules, t~e appcll~.nt .. ...,.. applied for one or'the posts and was .also successful in gf'tting s~le~ted and appoined as an Assistant Judge. by notificatiqn issued ori 2-l-1967.~0n Februa1:y IQ, 1973, D the appellant was appointed to officiate in the cadre- of.District Judges and' later '• confirmed as a District Judge y;ith effect from Atigust, ·' ..1, 1975. ,. The seniority of fhe ' appellant was fixed on the basis of his actual-appointment as District Judge in April· 1973. '· \ ./ ~-·

E . The appellant filed a. writ p~tition un'der Article 226 of the constitution conten- . ding': (i) that he.was enlitled to reckon for purposes of his seniority in the cadre of ) . · r .- District Judges the period during which he worked as an Assistant Judge in accor.: dance with the proviso to sub clasuse (b) of clause (i) of sub (ule (2) of Rule 5 of the Bombay Judicial Recruitment' Rules, 1956, and (ii5 that he 'was entitled .to g<?t the salary and allowances in the S~lection grade scale.or to be posted as an ln~pecting judge. Both the contentions were negativ.ed by the Hi&.h Court and hence the app~~l. F by special leave of the Court. X .. . I . '

. .... .. Allo;,ing the appeal in .part, tho Court.

G HELD 1. Due to lacHes and absence of satisfactory explanatio1,l for the delay of nearly 11ine year~, the que.5tion of the correctness of tf1e seniority assigQ_ed to the petition~r appellant in the ye~r 1973 ·cannot be looked into. [708 Fl

H ' 2.1. The appellant is entitled to the pay in the selection grade pay scale from ' the date on .which--the immediate Junior (seniority being coun_t¢ on the length of

p. 705 Copy page pinpoint

. co~tinuou~ officiation in tho cadre of Di~trict Judges) -commenced to draw. salary A '. _... • -, in the ~electiorq:rado ~>~f 8cale, .'He ",is also, entitled to all other cons~quential relief · flowi~g therefrom. ["18 C-D] · · . ~· ·, ... • . \ \

2.2. Th~ :two Rc~olutl:ons of the . dovernmc~t sanctioning six posts· of. selec- tion grade District JudgcJ did .not indicate that there was any process of proniotion ! B ·by ~election or othcnri!G rrori1 the c~cire o·r 6i~trict Judges to the-cadre of ~election i. ., grade District Judges involved wh11e sanctioning the selection grade pay. scale: There 1 _>. . . . • • _f .. . .- • • . ~

wa~ no que!lion of even crossing the efficiency bar. The· said selection grade scale ·. 'wa~ sanctioned only to. mi'tigate the barLiship caused· by· stagn~'tion ·at .the highest . .i . -~eve! of the original p~y !cale i.e. Rs. l~Oo .. It was just a time-scale a,nd an 'extensio,n · or.. projection of the' pay-scale of Rs. 900~1800 applicable to the ca~rc of District . Jud~es but. confine<f.t~ six persons in all. The sanctioning of sel~ction grade_pay ,-sea ie for Dis'trict'Judses has nothing to do with the creati~n of the posts of Inspecti~i Di~trict Judge:tcither. The true legal position is that the 'first six persons in tho senio· rity., list of judges based on the '!eng'tll of continuous officiati'bn in the cadre ~f Dimict Judge~ cart only be recipionts of salary in the selection grade pay scale,'- · the~e h£ing only six· such selection· grade s~tnctioned. [71 0 G-H, 711 A-B] "

2-:.J. Whee it is k~1d · that the selection·· grade District Judges.do no't consti- tute a separate cadro, tho High Court. cannot in exercise of its" general . power~ of -e'. · ·~·. control under Article ·23~ of the Constitution withhold the increment, beyond Rs. 1800 in the selection lrade pay scale unless there is a .·i-'ule or-~n executive .instruction' . a which ·authorisei it to <lo 'io.' The ~election grade post is not post to wluch promo- E '·. /lion lias to be made nor ·is there any cffit;fency bar ~ule attached to it.rF~rther it is ·~or \hown that tho Governor had issued any executive .instmctions, . . \ . ... ~nabling the..... - \ High <::'ourt to withheld increments in ~he extondcd pay scale which is in· t~is case called ns-ac!yction grade pay . scalo. The pay scale to which a judicial officer is·r: a· . entitled i~ il ~onditio.n of ·tervice whicJ{ean be fC8Ulated by Statute or rules made- ... . under the proviw ·.o . Article 309 or by eltccutive insti·uctions i~swid unoer F .>' Article 1.62 of the ~~titutioA. It cannot come withi;1 the range of the expression 'control' .in Arti~lc 235 of th~ Constitution. It is only where there is such a·l~w, rule:. . or .executive instruction, thO ~ig~ C~urt·may ~ct ·u~der Article 235 of the Constitu- tutioA t~ ~sanctioll it. or to refuse to sanction it. ·{717 C-FJ ·,

Tn the P~«ent CllSO the mete nomsncl~ture given·t·o the extenc;icd. pay scale a~ the se.lection:.~rado p~y- .Calc _do~s n~t lead. to t~e inference t~at_ ther~- is ~~ element ofsel~ction mvolvcd 1u sanctJOmng 1t. fn the Circumstances 1t should be trooted .as jmt an extended pay .tale which, forms part of the pay scale of Rs. 900-1800 as clari~ tied in·thetwo Gove~nt orders.sancti~ning the selection grade posts. The·refu~l H on the part of .the High Couz:t. !o Sanction, the selection grade pay ,scale to· the

"706 [1984-) 2· s.c.R.' .. SUPREME COURT REPORTS. .... A appellant wi1en it became due automaticaJiy on the ground that he was not ·four.d fit to be sanctioned. thi_lt scale of-pay is errorncous. [717 G-H 718 A] . .. ' Sant Ram Sharma v. !itate of Rajasthan & Anr, [1968f 1 S.C.R. 111; Labt Mohall Deb & others v. Umon of-lndw & Others AIR 1972. SC 951 B.S. Yadav & Others etc. v; State ofHaryana & ot~ei·s etc. [1981] I S.C.R. 1,024 referred to. B ' 3:1. The High Court had not created a1~y new cadre of Inspecting District ,\ "Judges and that.it was only for the purpos'c of facilitating a 11rief and easx reference to Sii!Ch officers as· were '!:loing inspection work under a scheme evolved by the High Court for .maintainipg the efficiency of the JudiCial Service that they· were .bcl~g,.. c ·referred .to in coinmon parlance as-Inspecting District' Judges. No rule WIJ.S(evolved - by the High Court to the effect that either the senior most -Judges or those promoted .. •• by selection to that cadre should be posted as .Inspecting District Judges. Taking . the these guideliqes together,' it is pos~ible to post any J?istrict Judge who satisiles as the three conditions an Inspecting District Judge even .though there may be.many District Judges who are senior I . to . him and who also satisfy the abcve conditions. Since admitted!,- the posts of Inspecting District Judges do not constitlltc a separate· , D ·:cadre superior· to the cadre of District Judges, n~ person posted as an Inspecting !District Judg<! can claim seniority over a District Judge who' is not holding such a post on that ground alone. [712 E-H].. :

I . . 3.2.. The High Court in the Judgment under appeal has, committed nn error ~- in virtually treating the Inspecting District Judge as equivalant to -select:on gr!J.de. E DistdctJudg<;s." The creation o.f the posts of five Inspecting Di~trict Judges' had nothing to ~o with the sanctioning of sclectio\1 grade pay scale for Disnict Judges,) Wliile- the selection grade pay scale was sanctioned for six posts of District Jlidges ~ by the two Government Resolutions'clated,October 21, 1963 and July 20, 1974, the . 1 five posts ·of Inspectin·g District Judges were created by the Goverr.ment Resolution . . dated September 23, 1959; These five posts were not posts with the selection grade scale which had ~lrea.dy ·been brought into force by the "Government Resolution • pay >< of October 21, 1963: It' could not also have .been the intention o,f the High Ccurt as well as· of the Gov~rnmcnt at the· time of the creation of these posts or lnspccting District Judges that the five senior-most District and sessions Judges in the State should . instead of. disposing ·of important . judici;l work vbe engaged· in . inspecting a minimum of 35 ·courts during a year, in writing reports and in carrying out other administrative work which would leave. very little time. to engage themselves in judi- .G cial work. ~hat is also clear from the'guidelines.laid down for the posting of an 'officer as an Inspecting Judge which could_ be e~sily satisfied by younger and active

.. , members working in the cadre ·of District Judges. [714 F, 715 H, 716 C-D,} f

ll '' 3.3. The High Court also o"\·erlooked thanhe specific case of the High Court . } ' ~ bd~ that no separate cadre of·lnspe9ting District Judges had been created, there ·•

· D.A. GURSAHANI V. MAHARASHTRA:..(Venkataramiah, J.) ·.·· ..., ~ . ~ould n~ "occasion· ~o-,consider the case of. the aRpellant. ~r any other ·Distric-t be A :_·. . . Judge t'or such promotion. The selection grade District Judges arc only those who . draw pay in pay scale of Rs; 1800-100-2000 for which rio prOfll:~tion is contemplated- ~ · : and th~t ·niere_posting·as an InspeCting District Judge by itself does not make an . 'officer so post~d superior to other District Judges. The true legal position-is that whil~ the'first six p~rsons in fue seniority list of District J\ldges based on ~be length of· ~onti~uous officiation in the cadre of District Judges can be recipients 'of salacy jrt the selection grade pay sc<lle, the posts of I_rispecting District Judges and of the B .3 Registra-r need not n(X:eSsarily be held by· them, Therefore, the question wpether {he appeallant ·can be posted as ·an Inspecting District Judge is within the discr~tion · . -~:;Lthe High_. Court only. f.716 F-H, 7li f\-B, HJ f _· . ~. .- • -..J

CrvrL APPELLATE JuRrsoicrroN: Civil Appeal No. 435 ·or 1_983 .

.I • \ . ' . · I · , · . .. \ Appeal by Special leave from the Judgment and Order dateq ~the- jOth July, l982; ·of the Bombay High Court in writ· petition ·. D No. 63- of 1982. · ·. '(

'( . . ' · D'aya_ram Asanand. Gur!ahtmi: Appellant in p~rson. / E -. '' . -A. V. Sawant, .M. N. Shroff, S. M. Shah :and P. Sankara ' Narayana for the Respondent. ' .. \ (

F . The Judgm~.iit of the Court' was Ef.eliverec.i by

VENKATARAMIAH, J, -The two questions urged in·. appeal/ tl1is filed against the judgment of the High Court of Bombay are whether · the appellant is entitled to .reckonJor pUrJlOSes ~f his seniority in the cadre· of District Judges the period during which he· had worked as · an Assistant Judge in accorda-uce·with the proviso to ~ub-clause (b) o'f clause· (ij of sub-Rule (2J:;C?r Rule 5 of the Bombay Judiqial Servi'ce Recruitmen! Rules, 1956 (hereinafter referred to,as 'the Rules') and whether the appellant is entitled ·to get the salary and allowances. in Ji ':·

. - } 708 SUPREME COURT,,REPORTS (1984] 2 s.CJ.t.

the selection grade scale or to· be posted as an Inspecting Judge_ Both the contentions were negatived by the High ·couit in a writ petition filed underArticle 226 of the Cdnstitution. This appeal by · special leave is preferred against the judgment of the High Court. - I

B The appellant was enrolled ·as an advocate on December 14,. · • 1951. In response to a notification inviting application• for the pur-. l. pose o,f recruiting members of the Bar directly aa District Judges under Rule 5 (2) (i) (b}ofthe Rules, the appellant made an application~. 1 ' for ·considering his case also for recruitment as a D'istrict Jildge. .- Pltima~ly five persons . were selected and appointed as Assistant~ ' c Judges by notification issued on January 2, 1967 ,and the appellant . ~

was one of them. All of them were first posted aa Assistant ]ud.gcs as per the. proviso to" Rule :.S (2) (i) (q) of tpe Rulei. -On February ~ " · · 19, 1973, the appellant' was appointed to-·officiate in the cadre of . District Judges .. · He was confirmed as a Distric.t }udge with ~'ffect · ·from Augu§.t 1, 1975 as pe·r notific;ation No. A 1274/7~ dated.Decc--m.ber D 9,197.5. The seniority of the appelleant i~ the cadre ~f District Judges . was fixed on the basis of his actual appointment. u District Judge in April; 1973. Th~ first contention of t~e appellant is that on a true construction of Rule· 5 (2) (i) (b) of the Rules, ·he should be deemed ,._ t: to liave ente~ed the cadre of District Judges when he was initially . recruited as a District _Judge and posted·as an Amsi&tant 1udge under the proviso to Rille 5 (2) (i) (b) of the Rules. This claim of th~) ' appellant has been. rejected by the High Court. We db not propose • • • • .... w • '

to constder this contentiOn on the ground of lachea as we ·do not · find any satisfactory explanation for the delay of ne&rly nine years on the part of the ,appellant in questioning the eorroctness of the / seniority assigned to. him in the· yea~ -197~. · ><. ....-

.,. ·'• We shall, however, confine this appeal to tht second question nam~ly, whether the appellant is entitled to the salary and allowance~ .~said to be pay,able to,District J.~dges in the se-lection graM. In order to decide the above question, it is· necessary to deal with ·the consti- . tutionof'the ,Judicial Service in the State of Maharashtra. The Judi- cial Service of . the State. of Maharashtra 'con~ists af two branches- namely, (i) .the Junior Branch and (ii) the senior Branch, The Junior Branch consists of the following Class I Officcn-(i) Judges of the H Small Causes Courts at 'places other than Bombay, (ii) Civil Judges (Senior Division), (iii) Judges of the Small· Cau5U Court at Bombay"

D;A. GUitS'AHAN; ~. MAHA~SHTR~ (Venkataramiah, J.) - 709 . . . .. .. . . . ' \

..... a:nd Metropolitan Magistrates ~nd (iv) Clyil Judges (Ju~ior Division) . A' I and-Judicial Magistrates ofthe First Class . .The SeniorBranch cop..: · sists of(i) District Judges,: (ii) the Principal Judge and Judges of' the • ·Bombay' City Ci~il Court, (iii) the .Chief Judge and the Addl. C,h ief Judge of the Small Causes Court; BombaY, (iv) the Chief-I~residency . Magistrate and the Additional ·Chid Prc~idency Magistra:tc,: Bombay · and (v) the Assistant Judges.· The Metropoli~an·Magi-strate, Juvenile B '\ Court; Bomba~ is also a ni.embe~ of the Maharashtra Judicial Service. Rule '4 of the Rules. provides: for tl~e niethod. of appointmel!t to the ·post in the .Junior Branch including Metropolitan Magistrates: Juve- ~· nile Court; Bombay, . Rule 5 of the Rules deals with the method of . ~ . · . recruitment t6 the Senior Branch. · . · .• ~ · · · · I. , '•.' , - 1 ...._t... ··;

Sub~ruJe (l) of Rule 5 cif the Rulesrelates to the .recruitment ·r .

..... ·to the cadre of District Judges and J~dge~ of the Bombay City Civilr Court. It re~ds : . . · ·,, / \, ~. . i ,.''5, (2) · D is~rictJudges and Judges of .the Bomb~y Cit_y ·civil Court. ..

. ...,... . . · ti) Distfict Judges~-Appointments to the posts of Dist- " I , ' rict Judges shall be made-.by the .Govern?r- ' · '. ·E ~:.- ' '·' ·'

(~) . in consultation with ,-the' High Court by p'romotion . . ~ . · ·-from the members of, the Junior Branch .who ·have ordinarily . serv~d as Assistant Judges, and· . :t> · · . . # . , ~--........ . \

-. . , :(b) on the rec0mmendation of the High Court rrom ~em.:. ' .. bers of the Bar who. have practised ;s Advoc~tes or Pl~aders ' for not less tl1an 'seven yea'rs. in the' High Court, 0~ Courts · :mbordinate thereto·: · . . ' · • · I · · . . ' ·' \. .. :~

· Provided . that persons. recruited at the age. of riot more than forty-five years, .fifty years in the case of a person belong- ·.'. ing to a community recognised ·as backward by Government H ·for. the purposes of recruitment ·shall· first lle app.ointed to· ·. • ( .. .. ' (

.. -:710 SUPRHME COURT _REPORTS [19841 2 S.C.l{.

~ork as. Assi;tal)t Judg~. for such ·period as may be decided by Governme~t on the merits of his case on the reo;mmenda- ·tions Qf the High Court before he is appointed as a Distriet iudge: ~

- B ... · · Provided further that ordinarily the. proportion of post10 :filled in by promotion, underc lause (a) and those by appoint- . .. ment from members of the Bar under clause (b) shall be 50: 50." ""'-._ f .' . . it may be noted here that there is no separate· cadre of s~]ec­ tlon!grade District Judges or of Inspectin~ Di~trict Judges referrt& to in the Rules which are· framed under the proviso to Article 39~ I . f "'

' of'the. Constitution.. The scale of pay of District Judges priar t6 July L 1962 was Rs. 900-50-1000-60-1600-50-1800.

D .· : On ·october 21. 1963 on the rec~nimendation of the Hip.,

·. .whicli' . . Court, the State Government passed a resolution, the relevant part •f reads as follows': \ . . . . . ·

- - E "Resolution:' Govehlm~nt is pleased to sanction one post of District Judge in the· Selection Grade of R<J: 1800_:100-2000 in the cadre of District Judges with. .J. effect' from the lst July, 1962. ,As the Se/ectton Grade is the part of the ·j)~y scaie of .Rs..900-50-1000-60-1600- . S0-1800, applicable to th._e cadre· o/ District Judges, ~n· F officer drawing pay in this grade shall. also be entitled to the. special pay, if any, attached to the post held. by . bini, subject to the condition that pay plus special pay does not exceed Rs. 2000/-." (emp4asis added)

G The resolution set out above only stated.that oneoist~ictJud:e . in the selection grap.e will draw salary in the. scale of Rs. 1800-109- 2000 with effect from .July ]~ 1962. It also stated that. this scale ~as a part of the pay scale of R.s."900-50-I000-60-1600-50-1800 appli- ·. cable to"tbe cadre of District Judges: .It did not indicate that there H · 'was. any process· of promotion by selection or otherwise from the . cadre of District Judges to the cadre of selection grade· District Jud&es ' " ·('' , ., '· .

o.f.' GURSAHNI v, MAHARASHTRA (Venkataramiah, J.) · · 711 ' - ·.~. . involved;wh;Ic sanc~i~~ning the s~lection grade pay scale.· There was A. . ~6 qu'!stio-~ of even ~rossing the efficiency ·b.ar. ·:It appears- that. the. said select'ion grade scale was~sanctioned Olily to mitigate the-~ hard~ .. shi pj :caused by stagnation at the. hig~est level ·or ·the ·original. J)ay scale i.e. at Rs. 1.800. It was just.a,time-scale and ·an extension or proj,ectii;>n· of the pay Stale of Rs. 900-1800 applicable tQ the cadre of District Judges but c'onfined t6 one. person. The above resolu-. .B tion was fli>llowed py another resolution· of the State: Government · . · . .J.. . ·_dated July 20, 1974, the material 'part of whi.ch read'as fo)Iows: . '.

''Resolution: Government is pleasedAo sanction· five ·. additional ·posts of ·District- Judges in . the. sdecti~n .. c · grade 'of Rs,.'l800-I00-2000 in the --cadre of- District '· .. J~dges with effect from. the 1st Augu-~t, 19l4. 1 As the Sdedion Grade is the part· of the pay scale oi Rs..900~~- I.

50-1000~60-1600-50~1800,' . applicable to the cadre. of District· Judges, an officer drawing ·par. in this .gr~de - ' shall also .Q~ entitled to the special pay, if any., attach- . ed to the post 'held by. Iiiin, subject to the condition, that pay plus special pay does not exceed Rs .. 2000." : ' (Emphasis·added) · ' .. . , . E_~

" This r-esolution was worded in the s~ine manner· as the ea~lier · · ~- .~a,c but the number of selection grade ·p~sts wa~ _increased by five. ( Thus; there were. in all six posts. of selection •grade District Judges · who coul~ draw1 sa!ary at the pay scale attach¢d to. i!· · • ._· I

, - · Cm~sequent upon the revision of pay scales' of offlc~rs of the· · cadre of. the Indian Administrative Service ·the State Goverrtme;nt mo~ified the pay· scale · of the selection. grad~ District Judges with·. effect from January I. 1973 by the resol1:1tion dated ·A ugust 2L -1975, .. the relevant part o{ whiCh reads ~hus: · I . G ..... . . . '•Reso)ution:. Government is pleased to direct that the revised 1:)election Grade I. A. ·S.. pay sca1e of . , R:5. 2000-125/2-2250 should be made applicable to the 'Selection .drade ·District Judges with ·effect from · 1- i~ H

112 SUPREME COURT · REPORtrS. [1984]'2 S.C.R

2Copy pinpoint2. Go~crnment is also pleased to direct that District ... / Judges 'in the Selection Grade pos~s, should be allowed to draw ·special pay, if any, attached to the P,o st held. . by them, subject to the .condition that pay plus specia·\ pav does not exceed Rs. 2450/-." · . ' : B I . . •f There ~Tas:· however,· no other alt=ration · in the conditions of · .service relevan-t _to t_he subject of ,selectloti grade District Judges.

c In so far a~ the Ins pectin& District iudges are ·concerned, it · is seen J:hat the specific ca~e of the High Court as s~t out in the ~affidavit of Shri · Makarend Shanka~ Vaidya, Adq.itiorial Regl~trar : (Inspection). High Court of .Bom"ay •is that the High Court had not created an~ new cadre_ of Insp'ecting Distriet,Judges and that it D . was only for the purpose of fa~ilitating a brief and easy reference to such officers as. were doing irisp~ction work under a scheme evolved · by the High C0urt' fo'r · maintaining the efficiency of the Ju~icial · . service that they were being referrCd. to. in common parlance as Inspecti.ng District Judges. N o rule was evolved b,y the High.Court to the ·effect that either the senio'r most .Judges or those promoted · by selection to that cadre should be posted as Inspe~tingD istrict Judges. ' It is, h'owevcr, stated by the deponent of this affidavit that the Higl\· J. ,,Court had laid down certain guidelines for posting a District Judge -· as ari Inspecting. District Judg~ and they~ are '(i) that}he P istrict · Judge should have put in at least three years as District Judge an(i . should have worked as such in an-y of . the districts, Qi) that ·his F adminstrative capacity should be !:,elativet'y high . :and (iii) that he should have a reasonable length of service ahead o~ him as a Dist~ ... . ~;ict-Judge till his retirement. . Taking all these guidelines togct_lier; it . is ·possible to post any District Judge· who satisfies· the three condi- tions· . as an Inspecting Disti·lct·. Judge even though ·there ~may be ·many District Judges who are senior to him.and wh~ also satisfy the G ·-above condit!ons. ·s ince admittedly the posts of Inspecting D istrict the Judegs do not constitute a separate cadre .superior · to the cadre · of District Judgse, . no person posted ( as an Inspecting District ,fudge can '

claim seniority over a District Judge ·who is· not h olding such a post on that ground alone. This is also manifest from· the statement ia H parag.~aph s2 of the counter affidavit filed on behalf of the- High Co~rt (respondent No. 2) which reads thus;

' 'I ' -.. j I

. ,. -' / . . ' D.A. OURSAHAN~'V. MAHARASHTRA u:~_nkataramiah, l.). 713 <'I say tliat it is false to say, that the respondent No. 2 has created an erroneous impre~sion in 'the· cadres .. ·of th~. judiciary,, public· ind litigants th_at Distri~t ' Judges appointed under the scheme of _inspection . of· courts are~ superior to. other District Judges .and -this .' ··,

.;'l ·has caused insecurity in-the minds of District .judges." 8· ·· · ' On the.abovequest1bn, the. High. Court ·ha~ ·observcd in its .. ·judgment under.. •appeal thu,s:' . \ .. -·· .. ·,

\ _• ''.GQvern.ment ·qf_ M~harashtra,. in ·Ja \V and ]udiciary' Department' Resolution dated 23r4 September, 1969 )-. and · the earlier the Resolution da.ted,..2ist 'Octobi.!r, · ''" 1963 hnd sanctio-ned the poats (;>{_ District Judges in the· Selection .Ofade. By. the same Resolution addi~ tional posts of Joint Judges were ·aiso sanctioned.· It appears from the· affidavit filed by the iesp_ondenfs. that . D-.. sche~e - fo~ conducting the ~~rpri~;e inspeCtion of 'the· · '\_ courts in the State outside the Greater. Bombay was. >I ... •, introduced. in the ytar· 1969 with'Y the · following· objects_; <. .:

"1.. · Frev~ntion; d;tection a~d motin~ otit the corru~~ •• tion from courts and their ::tdministrativt: ·offices. -- _.. -:

2. Enforcement of -discipline and.punctuality among . F ..#· ' Judges a·nd staff and generally · ensuring that the . allocated work both j~dicial zmd admillistrative is , ~-

dfici~ntly done~and delay in di~posal is ~limin~tcd. · ' ". - . • ' ... • \ ' + J

3Copy pinpoint3. Ensuring strict observan<le of. civil and criminal ' G ~- manuals.·

4: ~· checking of regist~rs. and accounts and ensuring . that they are properly and punctually maintained, . H· .j ·and ' · ''· :t·. . ·._;

714 SUPREME COURT : REPORTS [1984] 2 s,C.R.

5Copy pinpoint5. Ensuring the welfare of Judges and the st~ff-includ~ ing tile" provision of sujtable healthy and sanitary COn_dftions in. COUrts, . adequate housing ·a~COlll· • modation for the·Judges and the staff,· and.'· gene- . rally towards providing conditions ·of service with- in our limitations.".· 1'_ B . . .. / .. As part of this· scheme Judicial officers posted as District Judges at Pune,' Thane~ Aurangabad, Akola-' -"'--. and Nagpur are entrusted with the work of 'surprise 1

inspection of co_urts. Each ·of. th~se DistriCt rJudges is c expecte<l, . to .carry put surpri,se inspection work in 5 ' .'

districts. He is expected io carry (j)Ut the surprise inspection of at least 35 courts in a~ year and' submit 'his inspection notes to the High Court. These- inspec- I r tion notes are scrutinise_d by tije High Court and deci~ ,.. ·. . t sions on these inspection notes are also taken by the n High Court. Regular inspection work is carried out by 't the District Judge concerned. From the affidavit ·filed . b'y the' Additional Registrar (Inspcctioh) of the High Court, it is further clear that no new cadre or posts of · Jnspecting District Judge are .created. Though in a . coll}mori -paralance they are called· Inspecting District E

- JudSes ·they are merely District. Judges doing the work of surprise Jnspectiori." . '

Having held thus, the. High Court COnlDl~tted an. error. in virtually' treating the· Inspecting District Judg~s as equivalent to F . selection grades District Judges by the following obsfrvations made ·by .it i~ paragraph I). of its judgment: ·

"As to how ' the District udges arc selected ~or G doing this inspectiou work is also explained by the ;~ , responde~ts. 'in 'tlieir ··affidavits. From the submission ·,made in the affidavits it is quite clear that guidelines have been laid down for selectipg the District. J'od~es working under thfl, scheme of Inspection of the Cov 'IS. H Wltile selecting a person · guidelines kept in vhj,. . re • (i) that the District . ' Judges . should ·. . have, put in at_least

o.A.· rruRSAHANI ~.,. ' . . v. MAHAR~SHTRA . .. (Venkataramiah. .. ,) . 715

- 3 years as D!st~id lndge, a·nd should have worked as · - A- '--. such in a~y -of the distric~s, (2) that his _administrative· _ Capacity should; be relatively tJ.igh and (3) that he ShQUid t' have reasonabl_y long service,;ahead as Judge till his retirement. - Jt is also clarified· in the affidaVit _.thai' these rguideline~· necessarily" i~ply his competence in judicial worl,<: and also his general J?Crformance. The B assessment of relatively ·high. admil}iStrative capacity ' in particular implies in the· c011,text his_ aptitude for· 1 inspectior1 work, .his attitudes towards the bar, litigants, · judicial officers. a11d. ·staff. WQrking. in the 'inspecting courts. It' is also submitted. thai while r assessing ' the eligibility of a person with. reference to these guidelines, the cases of judicial 'officers 1lave-been con- c sJd:~red all along in the orf.).er of s~niority of the perso'n in che cadre of District Judges .. Since no separate cad~e is c_reatedof judici~l officers who a:re asked to d~· the work of inspection ·under the scheme, no separate rJlles ·are· fraJned, but· guidelines ·ar~ laid down by the- High Cour.t. . Similarly guidelines are -laid down for a warding the selection grad~ to the District Judge and norm~Jiy all the :S ~nspecti;lg. District. Judges and the Registrar are plac~d in the. cadr~ of Selection . Grade ·. ·District Judges unless ~here· are .co!Upelling reasons to the contrary.· It is .thenstated in the affidavit of the re.spo~dents that th~ petitionet's.case ~as-.considered on,. to four occasions· b~tween.1979 :1981 fer being.as·signed this inspection work and for being placed -in the selec- tion grade but he has not 'be·e~ found suitabl~."

.. F -_· The. infirmities noticeable in the above pas_:iage 'are ~hese: The', .liligh·-Couri has_ failed to notice that the creation of the posts Of five Inspecting District Judges hid nothi~g to .do with the sa~ctiofi.ip.g 9( · selection. grade pay sca·le for Dis~rict Judg(_!s. While. the selection grade pay scale was sanctiolled ·for six -posts of District Judges by - the., two Government Resolutions dated Octo!1er · 21, 1963 and July 20, 1974, the.five posts of Jnspecting·District Judges -were_ created by the-G)vernment resolution gated September 23. I 969. the relevant - part of which r~ad 'thus.;, 4'

"Resolution: Government is pleased· to direCt that ·

716. SUPREME COURT REPORTS 1I 984[ i S.C.R.. ~

five temporary posts of District Judges iu the sca'Ie of Rs, 900-50-I"!J00-60-1600-50-lSOO shou-ld be -created for a period of upto the 28th February, 1970 for inspection of subordinate courts ·ana tackling the· pro- I . b1em of corr.uption."

B • . . These five posts ~were not posts with the selection gra-de pay ..,.. scale which- had_alr~ady been broughdnto force by the Government .... . Resolution of October 21. i96l It could not also have been the intentionof the High Court as· wt~ll as ~f the Oovernment at- the time of the creation or these posts of· Inspecting Di~trict Judges C -~ that the five senior most District and Sessions Judges in the State should in/Head of disposing of imp~rtant judicial work. be engaged in· inspecting a minimum of 35.. court'. during a· year, in writing "reports and in carrying out other adry.inistrative work which would · leave .very .little time to engage thems~lves in judicial work. That is also cle~r from the i:Uid~lines laid down for the posting of an D officers as an r nsped:ing iudg~ which could be easily · satisfied by · ' y,~:mnger and active membtrs working in the .cadre of DistriCt Judg(·s. . ~

. The High Court also overlooked that the sp!;:dfic c~se of the 1 ·E fiigh Court, being that no separate cadre of Inspecting Distriqt .Judges had ·been created,. th~re. could be. no ·occasion to consider the case of the appellant or any ~ther District Judg~ for such pro- _, ..J. motion. The observations that ''Since no separate cadre is created of. judicial officers who are asked to do the work of inspection under the scheme, n() separate rules ~re .·framed but guidelines, are laid down,by the Hig!t Court. Similarly guidelines nrc 1i>id down for ·'A. awarqing the selection grade to· the District Judge and normally all the 5 Inspecting District Judges and the Registrar are placed in the . ... cadre of selection grade District Judges unle'ss ther~ :1re cpmpelling reasons to the contrary" in the above pass<tge a'Te again out cf place. \he ahoye conclusion. would· have _been possible only on prod' cf the following facts ~iz. · (I) that the· se_lection grade 1D istrict Judg::s. and the Inspecting District Judges belong to the same cadre and (2) that ~'they belonged to a ·cadre higl)er than the cadre of District Judges or that there was a need for going through the process of s~lection to sanction · s'7_]ecticin grade pay_ scale. We have already H ~h~wn that the selection grade District Judges are only ·those who draw P~Y in pay scale of Rs. 1800-100-2000 for which no promotion · . . ..

-, D.A. GURSAHNI V. MAHARI\~HTRA (Vtnkataramiah, J.) . 7 17 . ''"; - ' -·\,.:- .. ,, -. r ' ' \

.is contemplated and that me~~ _p.ostirig.as· an Jns~ecting-District Judge A · by itselfd:Jes not make an officer so posted- superior to other District Judges. )'he true legal position isJhat while thefirst six' persons in (, the sei)ioritYlist of District Judges based on the length· of continous · . officiation' ·in the cadre of District Ju-dges can be- recipients of salary :r in. the- selection · grade, pay ~cale, the -posts of "inspecting · District Judges and of the Registrar·_need not necessarily be held by tb.em. · ,' B I. - ~

- - :/ " ,. .- , . · ' When it is.. held that the selection. grade District Judges 'do , not constitute· a separate cadre, the H\gh Cour( cannot· in . exercise

"' • ·" " ,_....----of· its general powers i;lf control under Article 235 of the Constitu- tionwit~l-iol_d the increment beyond Rs:J800 :in.the selection grade; c ,._ pay scale unless there is a_ rule or an exe~u!ive : instruction whiCh - .' authorises jt.to do so .. -As mentioned earlier, the selection grade l)ost. is not a post to which promotion has t~ be made 'n or is 'there ariy ..... ,). . . efficie~cy bar rule attached to· it.·.· FJJrthei it is not shown that the' , · Governor had issued a:Oy exc'cuti~e instructions<as it had been done : . -. in- Saift Ram Sharmq, v. State of Rajasthan-& Anr.r~J and in Lalit_, .D.. . ' Moha~ Deb & 'ors. v . .Union of- india'·& Or~.r~J enablibg the· High. · Court to withhold increments ·in the extended pay· seale which is in _this case called as selection grade pay scale. The pay scale to which . a judicial officer is entitled is a condition. of service 'which . can be 4-: - ....., regulated by' a statute or. rules , made udder the proviso· to Articl~ -, 309 or by executive- instructions' issued unde_r. Article 162 of th~ E Constit~tion; It -cannOt com~ within the rang6 of- the _expressio'n ,, -~-~ . 'control' in Article 23 5 .. of tl;le' Constitution. (See· B.S. Yada" & Drs. -I •

~tc. v. State of Haryan~ & - Ors, dc,r3J) · It is. only ,\vhere there is . ~uch a law, ru:~ or executive iristruction, the High Co~rt- may act ·.under Article 235 of the Constitution to sanction it or to. nifusc to ·' . .sin.ction it We are of_ the view that in the -p-resent. case the mere. F 'norilenclature given to the extended pay scale the selec'tion gntde as . pay scale does not lead to the inference -tha't 'there is an' element of. selection involved in sanctioni~g it.. In the circumstances itshould ' I b(f treated a~ just an extepded pay scale whjchfo_rms part of ihe pay scale of ~s. 900-1800 as clarified in. two. .Government _orders sane..:. I tioning the selection grade posts. In view of the foreg~ing while the 'I -·. question whether the appellant -can be posted a'n Inspecting District as ' :~ - Jlidg~'is withi~ the- discretion of the High Court, the refusal on the ' " •'; •. -(1) [19681 1 :' ....s:c.R. 1 i1 \ H _> •

..(2) A.I.R 1972 S.C. 995) f ~ I. -(3) [1981] 1 S.C.R: 1024 -·· ..•../_ .' \ ..- . ,

718 surREME COURT RE~ORTS .. [1934] 2 s.c.R .. .• > ....

A p1rt of the High 9ourt _to sanction the selection grade pa'y scale to . · the app~llant- when it become due automatically on, the ground that !t: he was not found fit to be' sanction':d that scale of pay is erroneous. _In view of· what has been stated above, )ve rieed not go in:to the . other· points raise4 by the appellant regarding the above questibn. / B .. In the res~lt the judgment of the High Court is set asi<:J.e in so far as the question of san~tioning. of the selection grade pa/scale · to the appellant is concerned.' It is hc;:reby declared_ that the appel- lant is entitled to the pay in the selection grade. 'pay scale from the ·.. ..........___ date on which his immediate junior (seniority being counted on the· . le-ngth of continuous officiation in the· Cl\dre of District Judges} com- menced to dra\v salary in the selection grade pay scale. He is a1~o entitled to all qther consequentia 1 reliefs. :flowing there fro ITt; A writ shall issue 11 the above terms., ,. -( '. , . - The appeal is a:-cordingly -ul!owcd in part. , No costs., .; . ' ~. I -

S.R. Appeal partly allowed. '