E. P. ROYAPPA versus STATE OF TAMIL NADU & ANR.

E. P. ROYAPPA v. STATE OF TAMIL NADU & ANR. November 23, 1973 [A. N. RAY, C.J., D. G. PALEKAR, Y. V. CHANDRACHUD, P. N. BHAO;ATI AND V. R. .KRISHNA IYER, JJ.] Constitution of India, Art. 3Z-Fundamental Right-Indian Administrative Sen'ice (Pay) Rules 1954 r. 9 sub-r. (I)-Declaration of equivalence-Mere violation of rule does not involve infringement of fundamental right. Constitution of India, Arts. 14, 16-Transfer of acting Chief Secretary to uon-cadre posts in the same grade as that of CVzief Secretary-Appointment and confirmation of ju11ior in tile post of Chief Secretary-Material or1 record must show that non cadre posts are inferior in 3tatus and responsibility. indian Administrative Service (Pay} Rules, 1954-Rule 9 sub-rule (1)- Making of declaration sine qua non of exercise of power under sub-rule. indian Administrative Sen·ice (Cadre) Rules 1954-Rule 4(2)-Scope of second proviso.

Mala fides-Onus-Grave impwations against lrolder of office with high res- ponsibility–Court would be slow to draw inferences from incomplete facts. The petitioner was a member of the Indian Administrative Service in the cadre of the State of Tamil Nadu. In November, 1969, when the post of Chief Secretary to the State fell vacant the petitioner, as the best suited, was selected for the post. The draft order in regard to the appointment approved by the Chief Minister. the second respondent. stated that the petitioner "is promoted nnd posted as Chief Secretary rice [R] retiring from service with effect from the after- noon of November 13, 1969". The final order in the name of the Governor, duly authenticated, issued on the same day, stated that the petitioner "is promoted and posted to act as Chief Secretary to Government vice [R] who has been granted refused leave …… " The petitioner was aceordingly promoted as Chief Secre- tary.

On the recommendation of the State Government that the posts of Chief Secretary and First Member of the Board of Revenue should be deemed to be in the same category and should be inter-changeable selection posts the Central Government by notification dated January 14, 1970 provided that the pay of First Member, Board of Revenue was to be the same as that of the Chief Secre- tary. The post of First Member Board of Revenue was thus equated to that of the Chief Secretarv in rank and status. By notification dated August 31, 1970 the Government of India enhanced the pay, rank and status of the post of Chief ·Secretary to that of the Secretary to the Government of India and that post was raised above every other cadre post in the State including the post of First Mem- ber, Board of Revenue.

On April 17, 1971 the State Government accorded sanction to the creation of a temporary post of Deputy Chairman in the State Planning Commission in the grade of Chief Secretary for a period of one year and appointed the petitioner to that post providing that he shall be entitled to the same rank and emoluments as admissible to the post of Chief Secretary. The petitioner did not join thi.'l poot and went on leave. On the petitioner's return from leave the post of Deputy Chairman was again created for a period of one year in the grade of the Chief Secretary and the petitioner was appointed to that post. Against ~ tho peti·

tioner made a representalion that the continuance of the post of Deputy Chairman in the rank of Chief Secretary for a period of more than one year would be invalid under r. 4(2) of the Indian Administrath•e Service (Cadre) Rules, 195-4. Next the State Government created a temporary post of officer on Special Duty for streamlining and rationalising the Sales Tax Act, "in the grade of Chief Secretary to the Government and appointed the petitioner to that post". He did not join this post too and proceeded on leave. After the petitioner was transferred from the pust of Deputy Chairman Planning Commission and appointed Officer on Special Duty for revision of Sales Tax laws the State Government abolished tbe c

c E. P. ROYAPPA v. TAMIL NADU (~ay, CJ.) post of Deputy Chairman ~anctioned under the earlier order and sanctioned the creation of a new post of Deputy Chairman "in the Grade of First Member, Board of Revtnue" on a pay of Rs. 3000/- per month and appointed a First Me!Jlber of the Board of Revenue to that post.

Besides, on the transfer of the petitioner from the post of Chief Secretary a person who was admittedly junior to the peti- tioner was promoted as Chief Secretary and was confirmed in that post. The petition.:r filed a petition under Art. 32 of the Constitution challenging the validity of his transfer from the post of Chief Secretary, first to the J;IOSt of Deputy Chairman State Planning Commission and then to the post of officer on Special Duty, on the following grounds : viz. (i) it was contrary to the proviso to r. 4(2) of the Indian Administrative Service (Cadre) Rules, 1954 and r. 9[sub-r. (1)] of the Indian Administrative Service (Pay} Rules 1954; (ii) it Wa! violative of Arts. 14 and 16 of the Constitution as the poots of Deputy Chairman, State Planning Commission and Officer on Special Duty were inferior in rank and status to that of Chief Secretary; and (iii) that it was made in malafide exercise of power, not on account of exigencies· of administration or public service, but be- cause the second respondent was. annoyed with the petitioner on account of various incidents referred to in the petition and wanted him out of the way. Dismissing the petition,

HELD : Per Chandrachud, Bhagwati and Krishna Iyer, JJ : (i) The promo- tion of lhe petitioner as Chief Secretary was ooly in an acting or officiating capa. city and not in n. substantive capacity.

The draft order does not say whether the promotion is in a substantive capacity or in an officiating capacity. It is the authenticated order which says for the · first time clearly and definitely by using the words "to act" that the promotion is in.an'officiating capa~ity. The authen- ticated order, in so far as it uses the words "to act" does no more than speak on a matter on which the draft order was silent.

The authenticated order correctly reflects the final decision of the State Government. There is, th~. no inCOn· sistency between the draft. order and authenticated order from which any error can be spelt out in the authenticated order. [378H·37·9E]

The rc ipOndents are not correct in contending that the authenticated order was the final order and it was not open to the petitioner to say that it did not correctly reflect the order as made by the State Government. It is now

w~ll settled law that when an order is authenticated the only challenge that is excluded by the authentication is that it is not an order made by th~ Governor. The validity of such an order can be questioned· on ot_her grounds. [378A·C]

KH!sr Emperor v. Shivnath Banerjee, 72 LA. 241 and State of Bihar v. Sonabati, [19611 1 S.C.R. 746, referred to. (ii) Tl:e second proviso to r. 4(2) of the Indian Administrative Service (Cadre) Rules has no application. The proviso merely confers limited authority on the State Government to make temporary addition to the cadre for IIi period not exceeding the limit therein specified. The State of Tamil Nadu could not add the posts of Deputy Chairman, State Planning Commission and Officer on Special Duty under the second proviso, as these posts did not exist in the Cadre as cons- tituted by the Central Government. They were new categories of pQsts created by the State Government. [380A-E]

(iii) The making of a declaration setting out which is the cadre post to whiclt a non·cadre post is_ equivalent is sine qua non of the exercise of the power under sub-r. (1) of r. 9 of the Indian Administrative Service

(Pay} Rules, 1954. [381C·Dl The determination of equivalence is therefore a condition precedent before a member of the Indian Admir.istrative Service can be appointed to a non·cadre post under sub·rule (1). The government must apply its mind to the nature and responsibilities of the functions and duties attached to the non-cadre post and determine the equivalence. Where it appears to the Court that .the declaration of equivalence is made without application of mind to the nature and resp!)nsi- bilities of the functions and duties attached to the non-cadre post or that extra· neous or irr~levant factors are taken into account in determining the equivalence or that the nature and responsibilities of the functions and duties of the two posts are so dissimilar that no reasonable man can possibly say that they are equivalent [ 1974] 2 S.C.R·

in status and responsibility, or that the decision of equivalence is mala fide or in colourable exercise of power or it is a mere cloak for displacing a member oi the Indiun Administrative Service from a cadre post which be is occupying, the court can and certainly would set at naught the declaration of equivalence and afford protection to the civil servant.

[3 82A-F] The order dated April 7, 1971 sanctioning the creation of temporary post of Deputy Chairman and appointing the petitioner to the post has not in it any trace of a declaration that the State Government found, on an objective assessment of the nature and responsibilities of the functions and duties attached to the post of Deputy Chairman, that it. is equivalent in status and responsibility to that of Chief Secretary. Further, the post of Deputy Chairman cannot be declared equivalent in status and responsibility to the post of Chief Secretary at one time aD(] to the post of First Member Board of Revenue at another. The nature and responsi- bilities of the functions and duties remaining the same the equivalence which is u matter of objective assessment, could not vary from time to time. 'fhis

clearly shows that the Government did not apply its mind and objectively deter- mine the equivalence of the post of Deputy Chairman, but, gave it a rank or grade according as who was going to be appointed to it. But the petitioner can- not now be permitted to challenge the vahdity of the appointment since in the letter dated June 7, 1972 addressed to the second respondent-he accepted the appointment without demur as he thought that the post of Deputy Chairman "was of the same rank and carried the same emoluments as the post of Chief Secretary". f384A·Gl

Similarly in making the orders dated June 26, 1972 and June 27, 1972 the State Government did not apply its mind and objectively determine the equiva- lence of the post of Officer on Special Duty, but gave. it a rank or grade accord- ing M who was the officer going to be appointed to it. There was thus no com- pliance with the requirement of r. 9 sub r. (I). But the petitioner cannot get relief in a petition under Art. 32 since mere violation of r. 9 sub. r. (1) does not involve infringement of any fundamental right.

[385F-386B] (iii) The contention that the transfer of the petitioner from the post of Chief Secretary first to the post of Deputy Chairman and then to the post of Officer on Special Duty coupled with the promotion and confirmation of a person junior to the petitioner in the post of Chief Secretary was arbitrary and violative of Arts. 14 and 16, though it may seem plausible, cannot be accepted, because, there is no adequate material to sustain it. The premise on which this contention is founded is that the posts of DeputY, Chairman and officer on special duty were not of the same status and responsibility as the post of Chief Secretary. It can· not be said on the material on record that the validity of this premise has been established by the petitioner.

So far as the post of Deputy Chall'lllan is concern· ed the J?etitioner himself accepted that post as being of the same status and res· ponsibihty as the post of Chief Secretary. Even though it is not possible to accept the thesis that the post of officer on special duty was equal in status and responsibility to that of the Chief Secretary, equally, it is not possible to hold it established on the materiar on record that this post was inferior in status and res· ponsibility to the post of Chief Secretary, though prima facie it does appear to be ~o. The challenge based on Arts. 14 and 16 must. therefore, fail. [388C·

389El (iv) (Concurring with Ray, CJ.): The burden of estabtishinj! mala fides is very heavy on the person who alleges it. The onus of establishing mala fides against the second respondent has not been discharged by the petitioner. The Court would be slow to draw dubious inferences from incoiJll)lete facts placed before it by a party, particularly when the imputations are grave and they are made against the holder of an office which has a high respons_ibility in the administration.

f390D-Fl Per Ray C.J. and Palekar. J; (i) The petitioner WI;!S not appointed substantively to the post of Chief Secre- tary. The gazette notification prevails over the draft orde{. The previous incum· !Dent in the post of Chief Secretary held his lien on the post until the date of his actual retirement. The effect of fundamental rules 86 and 13(d) as they stood prior to the commencement of the Constitution, is that an officer does not con- tinue on dutv' but ·draws leave salary by virtue of a • privilege granted to him. fhere !s no formal utension of service. He retains lien on his post. The post – A

·C 'F F. P. ROYAPPA v. TAMIL NADU (Ray, C.J.) cannot be sub3tantively filled till he actually retires from service. Th~refore, the petitioner did not have any right to hold the post of Chief Secretary. [355A-G, – {ii) It is not the case of the State that the post of Deputy Chairman Planning Commission and Officer on Special Duty are c~dre posts within the ·meaning of r. 4 of the Indian Administrative Service (Cadre) Rules 1954. The second pro- viso to r. 4(2) of the Cadre Rules does not confer any power on the State Gov· ernment to alter the strength and composition of the Cadre. The meaning of the second proviso to r. 4(2) is that the State Government may add to the cadre for the period mentioned there one or more posts carrying duties and responsi- bilities of the like nature of a cadre post. The posts so added do not become :adrl': po'ts. [356C·Gl

(iii) The real significance of Rule 9 of the Indian Administrative S-ervice (Pay) Rules is that members of Cadre posts cannot be deployed to non-cadre posts unless posts are of a calibre which can be filled up by cadre men. The

purpose of the declaration that the post is equivalent in status and responsibility to cadre post specified in the schedule to the Indian Administrative Service (Pay) Rules is to ensure that ~embers of the cadre are not taken to posts beneath their status and responsibility. The declaration is not one of mere form. It is of substance. A declaration in writing is desirab1e. The absence of a declaration will not be an impediment in ascertaining the equivalent status and responsibility. Similarly, the presence of a declaration may not be conclusive if the declaration is a mere cloak. The facts and circumstances has to be looked into in order to find out whether there is in real substance equality in status and responsibility. (358B-F; 360H; 361C]

The posts of Deputy Chairman Planning Commission and the Officer on Special Duty were created for cadre officers to discharge duties and responsibi· lities of a high order and must be counted as no less responsible than the top most cadre posts. The.se posts were not created all of a sudden with any oblique purpose.. When the petitioner was, posted to the new posts he was permitted to draw his salary as Chief Secretary and when a First Member Board of Revenue was appointed he took with him his salary as First Member. When the petitio· ner was to occupy the post of Deputy Chairman or Special Officer the post was graded to give him his old scale of pay and when the First Member was appoint- ed to these posts he was given his old scale as First Member. That the posts of Chief Secretary and First Member were interchangeable, though the former !lOt a higher salary, was recognised by the State Government and also endorsed by the Central Government in 1970. There was therefore no upgrading or down- gradina of the posts. f361G-362·G]

The petitioner who was in the selection grade could .thus be transferred to any of these. two posts of Deputy Chairman Planning Commission or Officer on Spe· cia! Duty whtch were posts not lower in status and responsibility to the cadro posts in Schedule III of the Indian Administrative Service (Pay) Rules 19S4. and which carried the same salary as that of the Chief Secretary. The services or cadre officers are utilised in different posts of equal status and responsibility because of exigencies of administration and for employing the best available talent· on the suitable post. There is no hostile discrimination in transfers from oae post' to another when the posts are of equal status· and responsibility. [3620· %301

(iv) (Chandrachud, Bhagwati and Krishna lyer, JJ concurring) ; The entire affidavit evidence establishes b!yond any measure of doubt that the petiti.:>ner"s .a11egations imputing mala fides against the Chief Minister are base- less. :rJte allegations of mala fides ate not contemporaneous but after thoughts a! a~ d!stance <?f one year. The petitioner's allegations are in aid of suggesting vmdtcttveness and vengeance on the part of the Chief Mioister. Facts and cir· cumst::mces repel any such insinuation and innuendo. [371H-372F] ORIGINAL JURISDICTION ; Writ Petition No. 284 of 1972,

Under . Art. 3 2 of the Constitution of India for the enforcement of fundamental rights. · A. K.' Sen, S.' i. R('na, U.N. R. Rao, V.'Selv.araj and R. R. Agar- Wala for the petitioner.

[ 1974] 2 s.c.R. S. Govind Swaminadhan, M. C. Setalvad, Ratnavel Pandian, S. Mohan, A. V. Rangam, Habibullah Ba.rha, N. •S. Sivam, D. Rtt;u and A. Subashini, for respondent no. 1.

S. V. Gupte, S. Ratnavel Pandian, S. Mohan, A. V. Rangam, D. Raju and A. Subhashini, for respondent no. 2. F. S. Nariman and M. N. Shroff, for inrervener. TAe Judgment of.. A. N. RA:Y, C.J._ and D. G. PALEKAR J. was deli- vered by RAY, C.J.

A separate opinion of Y. V. CHANDRACHUb, P. N. BHAGWA.TI and V. R. KRISHNA IYER, JJ. was given by BHAGWATI, RAY, C.J. The petitioner in this writ petition under Article 32 of the Constitution asks for a mandamus or any other appropriate writ, direction or order directing the respondents to withdraw and cancel the order dated 27 June, 1972. The petitioner further asks for direction to re·post the petitioner to the post of Chief Secretary in the State of Tamil Nadu. The respondents are the State of Tamil Nadu and the Chief Minister of Tamil Nad~J.

The petitioner is a member of the Indian Administrative Service in the cadre of the State of Tamil Nadu. On 2 August, 1968 the peti- tioner was confirmed in the Selection Grade of the Indian Administrative Service with effect from 22 May, 1961. There were 8 Selection Grade posts in the State of Tamil Nadu. The petitioner was No. 4 in that list. The petitioner in the years 1964, 1965, 1966, 1968 and 1969 was posted to act as Fifth Member, Board of Revenue; Fourth Member, Board of Revenue; Third Member, Board <lf Revenue; Second Member, Board of Revenue.

On 5 April, 1969 the petitioner was posted to act as Second Member, Board of Revenue. On 11 July. 1969 the petitioner was posted to act as Additional Otief Secretary. · On 11 July, 1969 the post of Additional Chief Secretary was tem- proraily created in the grade of Chief Secreatry for one year. 111e

State Government further directed that. the post o~ Chief Secretary to Government, Additional Chief Secretary to Government and the First Member, Board of Revenue were deemed to be in the same category and they were inter-changeable selection posts.

On 7 August, 1969 the State of Tamil Nadu wrote to the Central Government to amend Schedule III-A of the Indian Administrative Service (Pay) Rules, 1954, so that the posts of Chief Secretary to Government,

Additional Chief Secretary to Government and First Member, Board of Revenue could be of the same cadre carrying the same pay. The Government of India by a letter dated 26 September, 1969 stated that the status of Chief Secretary as the head of the Secretariat organisation in the State should remain unquestioned. The view of the Central Government was that the status of Chief Secretary should not be allowed to be diluted by the creation of the post of Additional Chief Secretary carrying the same status and emoluments as the Chief Secretary. The Central Govt. also stated that the post of Additional Chief Secretary was not a cadre post. The

Central Government, however, expressed the view that the post of First Member, Board of Revenue in the State should carry pay as ad- missible to the Chief Secretary. n. c. p c c E. P. ROYAPPA v. TAMIL NADU (Ray, C.J.)

On 13 November, 1969 the petitioner was posted to act as Chief Secretary to Government with effect from the afternoon of 13 Novem· ber, 1969 vice C.A. Ramakrishnan whose date of superannuation was. 14 November, 1969 who has been granted refused level with offect from 14 November, 1969.

On 7 April, 1971 the petitioner was appointed .Deputy Chairman of the State Planning Commission, That post was created temporarily for a period o~ one year in the grade of Chief Secretary to Government. The petitioner did not join the post. The petitioner went on leave from 13 April, 1971 to 5 June, 1972. When· the petitioner was on leave. Raja Ram, the First Member, Board of Revenue was by an order dated 18 August, 1971 asked to hold the additional charge of the post of Deputy Chairman for, one year with effect from 13 August, 1971. On 6 June, 1972 the petitioner returned from leav~. He was again posted as Deputy Chairman,· State Planning Commission on a salary of Rs. 3500/- per month. The petitioner did not join that post. The petitioner pointed out that the post of Deputy Chairman which was created for one year did not exist after 13 April, 1972.

By an order dated 27 June, 1972 the Government of Tamil Nadu accorded sanction to the creation of a temporary post of Officer on Special Duty in the· grade of Chief Secretary to Government for a period of one year from the date of appointment or till the need for it ceased whichever was earlier.

By the same order the petitioner was trans· ferred and appointed as Officer on Special Duty in the post sanctioned afores;aid. The petitioner did not join that post, The petitioner in the month of July, 1972 filed this petition.

The petitioners oontentions were these. ·First, the petitioner is. appointed ~o a post or transferred to a post whicih is not validly created. The post of Officer on Special Duty is said to be rtot a post carrying duties and responsibilities of a like nature to cadre posts within the meaning of Rule 4 of the Indian Administrative Service (Cadre) Rult!s, 1954. Second, under rule 9 of the Indian Administrative Service (Pay) Rules, 1954 no member of the Service shall l;>e appointed ta a post other than ~ po_st specified in Schedule III unless the Stale Government concerned in respect of posts under its control ot the Cen- tral Government in respect of posts under its control, as the case IJlay be, make a declaration that the s~id post is equivalent in status and responsibility to a post specified in the said Schedule. It is, there· fore. said that the petitioner who is a cadre post holder, viZ., holding th.e post of Chief. Secretary cannot be posted to a non-scheduled post wtthout a declaration that the non-scheduled post is equal in status and responsibilities to a scheduled post. Third, the. petitioner is posted to an office which is inferior in status and office to that of the Chief Secretary. Therefore, the order is a hostile discrimination offending Articies 14 and 16 …. Fourth, the creation of the post as well as the appointment and transfer of the petitioner to the post is malafide. In this context it is to be ascertained as to whether the petitioner was appointed to the substantive post of Chief Secretary to the State of Tamil Nadu. The petitioner relied on draft order of the Chief ;J54

SUPREME COURT .llEPORTS [ 1974) 2 S.C.R. ~inister dated 13 November,_l969 which stated that the petitioner 1s. promoted and ~sf¢ as Chief Secretary". The petitioner also rehe~ on the followmg note o~ the Chief Minister at the time of the passmg of the order.

There were 11 senior I.C.S./I.A.S. Officers borne on the Tamil Nadu State Cadre. The petitioner's position was No. 10 in the list of Senior I.C.S./I.A.S, Officers borne on the Tamil Nadu State Cadre.

Ramakrishnan, the then Chief Secretary was No. 1 in the list. ,Kaiwar, Subramanyam, Mani, Govindan Nair, Vaidyanathan, Ramachandran, Raman, Raja Ram were ·above the petitioner in the list. Ramakrishnan and Kaiwar were retiring from service in the month of November, 1969.

Subramanyam and Gavin- dan Nair were acting as Secretaries to the Government of India. Vaidyanathan was away from the State for over 8 years and was working under the Central Government.

Ramchandran and Raman also working under the Government of India since 1955 and 1959 respectively. Rajaram had left the State Cadre in 1960. In 1969 Rajaram was the Special Representative to the Government of Tamil Nadu. The choice was between Mani whose position was No. 4 and the petitioner.

Mani's work was not satisfactory during the flood relief operations in 1967. There was adverse criticism on his work from the public and the press. The petitioner was commended by Jtis superiors to be dynamic, efficient, vigorous.

The petitioner was, therefore, described by the Chief Minister to be best suited for the :post. It thus appears that the Chief Minister's note as well as the draft order stated that the petitioner was promoted and posted as Chief Secretary. But the Gazette Notification dated 13 November, 1969 was that the petitioner was "promoted and posted to act as Chief Secretary to the Government vice C. A. Ramakrishnan, who has been granted refused leave with effect from 14 November, 1969". The

Gazette notification prevails over the draft order. The substantive appointment of the petitioner was in the selection grade of Rs. 1800-2000. The petitioner was appointed on 13 ·Novem- ber, 1969 to act as Chief Secretary. It was a temporary appointment. He was not appointed substantively to the post of Chief Secretary. The fact that the petitioner was not appointed substantively to the post of Chief Secretary will appear from the note signed by t1te petitioner himself on 16 November, 1970. When Ramakrishnan went on refused leave for four months from 14 November, 1969 there was no substantive vacancy in the post of Chief Secretary. The petitioner in his note dated 16 November, 1970 stated that the p05t of Chief Secretary fell vacant substantively from 14 March,

1970 and was available for confirmation of an officer. The petitioner signed the note as acting Chief Secretary. The note was put up as to whether there was any objection in "confirming the petitioner as Chief Secretary. No order was passed on that note.

Under Fundamental Rule 56(£) a member of the Indian Civil Service shall retire after 35 years' service counted from the date of his arrival in India. Ramakrishnan completed 35 years' service on 14 c

c E. P. R.OYAPPA v. TAMIL NAI>U (Ray, C.J.) 35S November, 1969. When the petitioner was posted on 14 November,. 1969 to act as .Chief Secretary, Ramakrishnah went on what is des-. cribed as refused leave fpi four monthS. Under Fundamental Rulo 86 clause (c) the grant of refused' leave exttnding beyond the date on which a Government servant must compulsorily retire or beyond the date upto which a Government servant has been permitted to remain in service, shall not be construed as an extension of service. Fundamental Rule 13(d) provide• that a Government servant ceases. to ·retain lien on a permanent poet while he is on refused leave gran· ted after the date of compulsory retirement under Fundamental Rule· 56 or correapondifli other Rules.

The effect of refused leave under the Fundamental Rules iJ that there is no extension of service by the ~rlod 'of that leave~ Apln, during the period of refused leave there is no earqina of ~na.ion. · CoWllel for the petitioner relied on Funda- mental Rules 56(f) and 86(c) and contended that the post of Chief Secretary fell vacant as Ramakrishnan di~ not hold a lien on his post. It was contended! that the petitioner was appointed in an officiating capacity to the J)Oit· of Olief Secretary and reliance was placed on Fundamental Rule 9(19). Under that Rule a Government servant officiates/in a post when he perform the duties of a post on which another person holds a lien or the Government may, if it thinks fit,. appoint a Government servant fo officiate in a vacant post on which no other Government servant holda a lien.

Rarnakrishnan, who was on refu$ed leave being a member of ·the Indian Civil Service, was entitled under Article 314 of the Constitu- tion to conditions of &ervice as respects remuneration, leave and pension to which membert of the avu Service \were entitled immediate- ly before the commencement of the Constitution. Fundamental Rule U(d) as it stood prior to the commencement o~ ·the Constitution provided for the retention of lien on a permanent post while on leave without making any exception with regard to refused leave. Funda- mental Rule 86 as it stood prior to the commencemen~ of the Constitu- tion did not cOntain any [provision to the effecf that the grant of refused leave would not amount to extension of service. The Government ot .India. Finance Department Notification No. 520-CSR dated 31 May, 1922 contained the Government decision that the grant of leave under Fundamental Rule 86 automatically carried with it the extension required and no formal sanction to the extension was necessary. nie effect of Fundamental·Rules 86 and 13(d) as they stood prior to the commencement of the Constitution is that an Officer does not continue on duty but draws leave salary by virtue of a privilege granted to him. There is no formal extension of service. He retains lien on his post. The post cannot be substantively filled till he actually retires from service.

The Fundamental Rules of the Madras Government corrected upto 30 June, 1966 issued by the Finance Department, 2nd Ed. 1966 at. pages 133-134 contain a note appended to Fundamental Rule 56 of Tarilil Nadu State Government. In that note an exception in res- ~t of Indian Civil Service Officers is created by providing that in th~ ·case of an Officer of the former Secretary of State Service the grant SUPREME COURT R:EttORTS

[ 1974 ] 2 s.c.R. oJ such leave shall be treated as sanctioning an extension of service upto the date on which the leave expires. · Therefore, Ramakrisbnan held lien on his p0~ untU 14 Mirch, 1970.

The petitioner in the note for circulation dated 14/16 November, 1970 prepared by the Joint Secretary, Public Department, noted that the date of retirement of Ramakri9hnan would take effect from the date of expiry ofthe refused leave, namely, 14 March, 1970. That ia why the"petitioner asked to be confirmed as Chief Secretary with effect from 14 March, 1970. The petitioner was, however, not confirmed in the post. Therefore, the petitioner was not substantively appointed to the post of Chief Secretary. The petitioner's substantive appoint- ment wa51 in tlie selection grade of Rs. 1800-2000. The petitioner during the period of refused leave of Ramakrishnan acted as Chief Secretary by way of a temporary arrangement. The petitioner did not have any right to hold the post of Chief Secretary.

It was contended that neither the post of Deputy Chairman, Plan- ning Commission nor the post of Officer on SpeciarDuty was a cadre post within the meaning of Rule 4 of the Indian Administrative Service (Cadre) Rules, 1954. The Additional SoliCitor General as well as the Advocate General of the State did not contend that either of the posts was a cadre post within the meaning of the Indian Administrative Service (Cadre) Rules.

The strength and: composition of the cadre as contemplat:.ed by Rule 4 of the Indian Administrative ·Service (Cadre) Rules is to be determined by the Central Government in consultation with the State Government.

The relevant provision is sub-rule (2) of Rule 4. It states that the Central Government shall at the interval of every three years re-examine the strength and com· position of each such c_adre in consultation with the State Government or the State Governments concerned and may make such alterations as it deems fit.

There are two provisos in the sub-rule. The first proviso states that nothing shall be deemed to affect the power of the Central Government to alter the strength and composition of the cadre at any other time. The second proviso states that the State Govern- ment may add for a period not exceeding one year and with the approval of Central Government for a further period not exceeding two years, to a State or joint cadre one or more posts carrying duties and respon- sibilitits of a like nature of cadre po9.1:s.

It. therefore, follow3 that the strength and composition of the cadre shall be determined by re- gulations made by the Central Government in consultation with the State Government.

The State Government alone cannot alter the strength and composition of the cadre. The aforementioned second proviso to Rule 4(2) of the Cadre Rules does not confer any power on the State Government to alter the strength and composition oft the cadre.

If s.uch power were conferred d:t the State examination of the strength and composition. at the interval of every three years by the Central Government in consultation with the St.ate Govemment would be nullified. The mean- ing of the second proviso to rule 4 ( 2) is that the State Government may add for a period mentioned there to the cadre one or more posts c

Jl' E. P. ROYAPPA v. TAMIL NADU (Ray, CJ.) carrying duties .and responsibilities of the like nature of a cadre post. The posts so added do not become cadre posts. These temporary posts do not increase the strength of the Cadre. The addition of the post of Deputy OJ.airman, Planning Commission or Officer on Special Duty to the Indian A4ministrative Service Cadre of Tamil Nadu State is not permissible because that would result in altering the strength and composition of the Cadre. The State has no such power within the second proviso to rule 4(2) of the Cadre Rules.

Cow1sel for the petitioner contended that the pos:t of Deputy Chairman, Planning Commission as well as the post o:fi Officer on Special Duty was not equivalent in: status. and responsibility to the post of Chief Secretary to Government within the meaning of Rule 9(1) of the Indian Administrative Service (Pay) Rules, 1954. The peti- tioner alleged that both the post51 were upgraded or downgraded de- pending upon the persons to occupy them and tlierefore the posts were not equivalent in status and responsibility( to the post of the Chief Secretary.

When the petitioner was appointed to the post of Deputy Chainnan, .Planning Commission it was upgraded. When Rajaram was appointed to hold an additional charge of Deputy Chairman in addition to the post of First Member, Board of Revenue it was downgraded.

When the petitioner was appointed to occupy the pOst the post was said to be equivalent to that of Chief Secretary. When Rajaram was appointed it was downgraded to the level of the First Member, Board of Revenue.

The post of Deputy Chairman, Planning Commission was created fp~ one ~ear in the month of April. 1971. On 26 June, 1972 the State created a new post; of Special Officer for COmmercial Taxes which was stated to be of the rank of Member, Board of Revenue. On 27 June, 1972 the petitioner was appoiQted to that pQst in the grade of Chief Secretary for a period of one year or till the need of the post ceased whichever was earlier. The petitioner alleged that on 26 June, 1"972 when the post of Special Officer for Commercial Taxes was created it was supposed to be of the rank of a Member, Board of Revenue but on 27 J~ne, 1972 the post was upgraded and regarded as of the grade of Chief Secretary. When . the ~titi~n~r did not tak_e charge as Deputy Chairman of the Plannmg Comnuss1on on 7 Apnl, 1971, the Government directed Rajaram, the senior most officer in the State who was the First, Member Board of Revenue to hold additional charge.

Again when· the peti: tioner did not join- on 6 June, 1972 ·as Deputy Chairman of the Plan- ning Commission, it was decided to post Rajaram in his place. Rajaram was draw~g only a salary of Rs. 3000/- per month. The post of Deputy Chairman was to be filled either by the petitioner or . by Rajaram. The post was not inferior_ The Planning Commission is an advisory body to .th~ Govemment like the P1annin~ Commission at the .c~ntre. The ~i~f Minister is ~e Chairman of the Planning CommiSSIOn.

The petitiOner was drawmg a· salary of Rs. 3500/- per month when he acted as Chief Secretary. Therefore, the post of Deputy Chairman, Planning Commission carried .a pay of Rs. 35001- per month when the petitioner was apoointed as Deputy Chairman of the Planning Co.mm.ission. The upgrading· and 'the downgrading of the , – ,•

[ 1974] 2 s.c.tt. post of Deputy Chairman, Planning Commission alleged by the peti- tioner is not correct. The post was not upgraded or downgraded. The jncumbent of the post carried a higher or a lower salary according to the salary enjoyed by the incumbent at the time of the appointment. Broadly stated, the QCtitioner's_ contentions about the tw0 posts of Deputy Chairman, Planning Commission and the Officer on Special Duty were first that there was no declaration in accordance with Rule 9 of the Indian Administrative SerViee (Pay) Rules thai' the posts were equivalent in status and responsibility to a post specified in the Schedule to the aforesaid Rules; and, secondly, that the functions and responsibilities of the two pbs.ts were such that no comparison could be made between those posts and the pests in the Schedule. Rule 9 speaks of a declaration that the post is equivalent in iitatus and responsibility to a. post specifi.ed in Schedule III to those Rules. Sub·rule ( 4) of rule 9 states that where equation-.Qf posts is not possi- ble the State Government or the Central Government may, for sufficient reasons to be recorded in writing appoint a member of a service to such a post without making a declaration. It is, thererore, said on behalf of the petitioner that a declaration in writing is necessary where a post is declared to be … 1uivalent in status and responsibility just as reasons are to be recorded in writing where it is not possible to have a post equivalent in status and responsibility. In other words it is said that in one case it is a declaration in positive terms that the post is equivalent in S!tatus and_ responsibility and in the othetl case the declaration is negative in content that though the post is not equivalent in stafus and responsibility yet a cadre officer ofl the Service is appoint- ed to such a post. It is not in dispute that the. posts. of Deputy Chair- man, Planning CommiSJSion and the Officer on Special Duty carried the same pay as that of the Chief Secretary. It cannot be said that equal pay will by itself alone be decisive -of the equation of status and responsibili~ of the pgst. But·pay scale Will primarily show status responsiliiHties of equal nature.

The Chairman of the Planning Commission is the Chief Minister. The Planning Commission is a high powered Commission. The posi- tion of the Depu tv Chairman is equal in status and responsibility to the duties oft the Chief Secretary. The real significance of aforemen- tioned Rule 9 is that Members of Cadre posts cannot be deployed to non-cadre posts unless posts are of a calibre which can be filled up by Cadre men.

It also appears that the State since the year 1970 had been contem- plating the setting up of a Planning Commission. In the month 0£ March. 1970 the Finance Department prepared a note that a Planning Commission was necessary in industrial project, power project and irrigation. A properly organised plan for a region is to be an adjust· ment of the continuing rate of growth of economic product and a plan of continuing investments. A plan of long term development is n.eces· sary. Such a plan would spell out the various resources which can be utilised and the manner in which the fuller life can be attained by the people. The Finance Department of the State in 1970 advocated en- c

··.,…… E. P. ROYAPPA v. TAMIL NADU (Ray, CJ.) , 01cnt of ll group oE qmt\ificd economists to ":ork in collaboratiort ~7ft the Institute of Economtc Growth, New Dclha. The ,')tate wanted 1~

1 set up an Institute ~C Econom_ic Planning,_ to work with the advice f til· National Councrl of Appltcd Ecoaomac Research. A separate de ar~ment of planning was suggested by the State. The reason was 10 ~ave the advice of experts with knowledge in the specialised ficlo. The petitioner as the Chief Secretary on 23 March, 1970 did nO'l acc~pt the advice of the Fmance Secretary of the State.

He was ngainst the propos~! to e~~r~st formulat!on of pia~ to a body of experts. The pctition~r advtscd utthsmg the servtccs of scmor officers of Govern- ment d~partmcnt and enlisting the services of experts in any particular spherc·of activity or project, if foul)d necessary. The Ch1cf Minister f

on 2.5 De-cember, 1970 recorded a note that a !()..year plan was neccs- C s:uy. The State Plannin~ Commissi_o~ was set up in . the mon_th of April, 1971. The Plawung CommiSSion was to cons1st of Chatrman, Deputy Chairman, Members, Secretary ::md Deputy Secretary. The

Chid Minister was to be the Chairman. A full time officer in the gr.tde of Chief S.:crctary was to be the Deputy Chairman. The Plan- ning Commission was to achieve the d~clarcd objectives of the Govcrn- m~ot to promote a rapid ri~e in the standard of living of the people. The other objects were to

.~ee thnt the ownership and control of the material resources of the community are so distributed as to sub-serve th~ common good. The character and content of the Plannin~ Com- ntt>~ion ~tows that the Chairman being the ChicO Minister the Deputy . ~ E

C'n.11rman was equal in status and responsibility to the post of the Chd Secretary. Tile Swte Gowrnm.:nt in the year 1969 sanction~d the constitution of a. slathtical cell for preparin~ scientific;dly processed data of pro- duct10n and the source ofi production of various cornmoUitics liable to ~b tax.

A scicntiJic attulysis was also maJc of the pattern of traiL: and revenue accruing from different sections of the tratlc. In rhr~ month or August. 1970 the Government e~amined the suggl'sti0n ~; ~ 0 . the Commissioner, Commercial Tuxes to con.,titut.: an expc'rt com- l• ·

fllll~e to look into the various a~pccts of saks tax. Tn the month ~ Octo~cr, 1970 the Chi cr. Minister indicated that a committee might \U~~~s~~~thteddforf goit.lg i ~to tl_ae w0rl.:in!!

of_ t hc. sales ta:o: law a[nd hto · mo 1 ~ ~ or ~mp 1ficntton of the eg1s auvc measures. n t e of ~ 1 ?f. Apr~. I 971 thl! Chief Minister reviewed the important a'pccts ,i1~ ~~~~~traltun Hf Contml!rciH! Ta~es D.:partmcnt. There wer.:: p.:r- ihern

CJUands !rom one section o( the trade !or single point \.:\')". ing ~~ '~>tl: al_so ~etn(lnds from the ~,ther section r<1r changing th~ exist- . =4'Jl0il f e pomt ttems to multi pomt levy ofl sales tax. The td.:a <If rnt11t ~ ',\!: a committee was still eng~ging the attention ot the Govcrn- 1() c~n t' n_ote· was prepared by the Re\'enue D<:partment with regard the ,~

1! tiUlton of a committee to unt.lertakc a comprehensive study of ll!oo~1 sf talt mucture in tho State. Eventu:rlly the Government in the Strvice 0 June, 1972 deckled to appoint a senior Int.lian Administrative T:unil N~~cer. for '"Streamlining and relationalising" ·the struct~re of 11 C'c'lllrner .. ~ General Sales Ta:o: Act and similar enactments rdaung to -t~~~upc~~~ Taltes ant.l Rules made thereunder,

…… –… ( 1974] 2 S.C.R· The State General Sales Tax and other Commercial Taxes for long eontributed the preponderant share towards the revenue receipts of the State. Sales Tax played a significant role in the context of deve- lopment programme of the State.

These taxes fetched Rs. 112 crores in 1971-72. The General Sales Tax Act was enacted in 1959. In order to meet the situations arising from changing patterns of trade and commerce, the interpretations of the Act by courts of law, the discovery of loop-holes in the statutory frame-work, the S3les Tax Act has been amended from time to time.

The Chambers of Commerce represented to the Government for simplification and rationalisation of the lax structure and statutory _pr<Y-edures and practices. It iSl in this context that the State Government created the post of Officer on Special Duty.

The Officer on Special Duty was entrusted to deal with these matters. First,, there is to be general review of the commercial Taxes Acts from the point of view of the rate of growth of revenue in relation to the rate of growth oil income and the rate of growth of commerce and industry.

Second, the Sales Tax Act, the Entertainment Tax Act, the Local Authorities Finance Act, the Motor Spirit Taxation Act, the Betting Tax Act bein~ all State Acts and the Central Sales Act could be. rationalised and s1mptified so as to facilitate easy administration and also to reduce hardship to the trading community.

Third, the pr~nt classificarion of commodities taxed at single point and multi point is to be studied in order· to find out as ·to what extent there is a case for transfer of commodities from multi point to single point and vice v~rsa.

Fourth, it is to be fo'und out whether there is anv need and justification for the continuance of the concessional rate of tax:ation under the General SaleS! Tax Act on components coming under single point levy, and, if so, whether there is a case for extending the same concession to all raw materials.

Fifth, measures are to be found to improve the procedure of inspection, search and sdzure in order to make them more effective and at the same time to minimise the appre- hemion of harassment on the part of the trading community. Sixth, measures are to be taken to make the check post more effective and arrangements for the collation and interpretation of data collected at the check posts an~ the cross verification of such data with assess- ment records are als:o to be made. Seventh, measures to ensure ~gular and systematic flow of vital data such as tax yield from various com- modities and changes in trade practices affecting tax. yield to the Board of Revenue (Commercial Ta:tes) are to be devised and arrangements are to ·be made for their collation and interpretation to facilitak tax policy.

These are some of the principal duties and responsibilities of the Officer on Special Dully. These duties indicate in no uncertain terms that the post of Officer on Special Duty -is of enormous magnitude and importance in formulation and shaping of the revenue structure of the State. The duties and responsibilities of the Officer on Special Duty c

art.' beyond llny measure of doubt equal in status and responsibility to those of the Chief Secretary. · It was contended on behalf of the petitioner that there should be s declaration in writing. The purpose of the declaration that the post is c

E. P. ROYAPPA v. TAMIL NADU (Ray, C.J.) equivalent in status and r~ponsibility to Cadre post · specified in· the Schedule to the Indian Administrative· Service (.Pay) Rules is to Cl!liU!C that members of the Cadre are not taken to posts beneath their stl&tus and responsibility.

These ·measures are intended to preserve respectability and responsibility of the Cadre officers. The declara- tion is not one of mere form. It is of substance. A declaration in writin~ is desirable. The absence of a d~laration will not be an impediment in ascertaining the equivalent status and r~sponsibility. Similarly· the presence of a declaration may not be conclusive if the declaration is a mere . cloak: The facts and circumstances will be looked jr .::o in order to find out whether there·is in real substance equa- lity in w:us and responsibility.

Fundamental ·Rule 15 provides that no Government servant can bt. transferred substantively to or appointed to officiate in a post carry- ina less pay than the pay of the permanent post on which holds a lien or would hold a lien had his lien not been suspended under rule 14. The position of the petitioner was that he was holding a lien in the selection grade post. It was open to the Government to transfer him to a post or to appoint him to officiate in a post carrying pay not less than what he was entitled to in the selection grade of Rs. 1800-2000. How- . ever, the ;petitioner was appointed to the p9st of Deputy Chairman, Planning Commission on 6 April, 1971 carrying a salary of Rs. 3,500 per month. The petitioner went on leave from 13 April, 1971 to 5 June 1972. On 6 June, 1972 when the petitioner returned from leave he was again posted as Deputy Chairman of the State Planning Commission. The pcist carried a salary of Rs. 3,500/- per month· which is the same as that of the Chief Secretary. The petitioner made a representation on 17 June 19n that the post of Deptity Chairman in the rank of Cllicf Secretary could. not continue for a period of more than one year since April, 1971. The Government on 26 June, 1972 sanctioned the creation of a temporary post of Officer on Special Duty. On 27 June, 1972 the petiticmet Wl.lS promoted to the post of Officer on S~ial Duty. The post of Officer on Speci.al Duty also carried the same salary as that of the Chief Secretary. · Therefore, the~ petitioner who was in tlfe selection trade could be transferred to. any of these two posts of Deputy Chair· man, Plannin~ Conunission or ~r

Ol'l Special Duty which were posts not lower in status and responsibility to the Cadre posts in Schedule lli of the Indian Ac!ministrative Seryice (Pay) Rules, 1954 and which . carried the same salary as that .. of the Chief Secretary. The posts of tho Deputy Chairman, Plannins Commission and . the Officer on Special Duty were created for cadre officers to discharge duties· and responsibiliti.es of a high order. These posts were not created all of· a sudden with anv obliaue . purpose. The Planning ~ion

had been, in contemplation lo~ some. time. Similarly, the po<>t of: Officer on Special Duty was created after consideraVon and evaluation of serious problems of State J{even'Ue. Each one of the

posts. carried specific functions and respoilBibilities. · Comparisons ~tween· functlons, duties and responsibilities of posts ·at the apex ol different departments are not always posSible. The· status of tho [ 1974] 2 S.C.R.

post would also depend on the incumbent. because a brilliant officer can Sl? augment the opportunities of public service in that post that others may covet it. lhe _posts were created under the inherent execu- tive powers of the State Government. These posts were not additions to posts specified in the Cadre Schedule of the Indian Atministrative Service. (Cadre) Rules, 1954.

These were posts outside ihe cadre. On an objective consideration we find that the two posts were created for discharging functions requiring very high calibre and specialized experience and must be counted as no less responsible than the topmost cadre posts. Finding suitable officers for such speciali- zed jobs is always . a difficult problem for the administration. The

Cadres do not always overflow with superabundance of specialized experience. The choice, therefore, ·becomes limi~. The Admini- stration has also to take into account the willingness or otherwise of an ofticer to take up a new jQb which may not invest hi1n with wide c;lecuti.ve powers which he wields, while. holding even less intportant pos,ts.

The choice in the present case fell on the petitioner when the post of the Deputy Chairman was created ~ then again wberi the post Special Officer was created. He was given the pay scale of the Chief Secretary,. betause that was the scale of pay he was drawing when he was appointed to these posts. The f~ that on his refusal to join the posts, some body else was appointed on Rs. 3000/- does not·devalue the job. The job remains the same. The question for the administration is to choose the man for the job, and it is only to ~ expected that whosoever is chosen will take with him his pay unless Government thinks of paying him more.

When the petitioner was posted. to the new posts he was permitted to draw his salary as the Chief Secretary and whein Rajaram the Frrst Member of the Board of Revenue was appoin~, he took with him his salary as the Frrst Member.

When the petitioner was to occupy the post of Deputy. Cliairman or Special Officer the post was graded to give him his old scale of pay and when Rajaram was appointed to these Pf'Sts, he W!lS ~ven his olct scale. as First Member. That the posts of Chief Secre- tacy· and First Member were interchangeable, though the former. got a higher salary, was recognized by the State Government and, also ~dor:sed by the Central Government long back in January, 1970 . . TI1.ere was, therefore no upgrading or downgrading of the post. The petitioner had worked as Deputy Commissioner. of Commercial Taxes and subsequentlx as Secretary to Government, Revenue Depart- ment dealing. with Commercial Taxes also.

'IJle petif:ioner was also Commissioner, Bo~d ~f Reven~ in charge of conuitercial ·taxes. In view of thf! wide experience of the petitionex: in the field of commer· cial taxes the Government decided to ·post him as Officer on· Special Duty.

This was neither unjust nor unfair nor mala:fide .. There was no reduction in rank. The petitioner's status as wen as pay was in conformity with the Rules . c o · . The petitioner coUld not claim that till retirement he must· coli.- tinue,to· act in the post of the Chief Secretary. The orders of 1ransfer were passed in the administrative exigencies.

c E. P. ROYAPPA v. TAMIL NADU (Ray, C.J.) The members of Indian Admj.nistrative Service and particularly those who are in the high posts are described as the steel framework of the Administration. The smooth and sound administration of the country depends in the sense of security and stabiilty of the officers. These offic~rs should not be made to feel that their position or posts are precarious with t}le change of Government. Their service must be completely free from the fear or threat of arbitrary act of the author~ ties.

Similarly, .. the members of. the Service should keep themselves isolated from turmoils of political·parties. It is this sense of disin· terestedness and detached devotion tQ duty which has to be recognised and. rewarded.

The posts· of Deputy Chairman, Planning Commission and Officer on Special Duty. are equal in status and responsibility. The services of oadre officers are utilised in different posts of equal status and res· ponsibility because of exigencies of administration and employing the best available talent in th~ suitable post. There i~ no hostile discri· mination in transfer from one post to another when the posts are of equal status and responsibility.

The petitioner alleged that the creation of the posts of Deputy Chairman,· Planning Commission and· Officer on Special Duty as well as the appointment of the petitioner to the posts was malafi.de. Broad- ly stated, the petitioner's allegations were that the Chief 'Minister acted malafide in removing ·the petitioner (rom the post of Chief Secretary The petitioner alleged that in the discharge of his duty he was fearless and he suggested action against persons who were friendly to the Chief Minister. It is said that the Chief Minister therefore wreaked his vengeance on the petitioner.

One of the instances alleged by the petitioner which gave rise to the anger of the Chief Minister relates to irregularities in the accounts of Tanjavur Cooperative Marketing Federation.

V. S. Thiagaraja Mudaliar was the head of the Federation. Mudaliar was a powerful and influential person. He was a close . associate of the Chief· Minis" ter. The petitioner put up a note to the Chief Minister that th~ case should be handed over to the police and the persons responsible ~hould be hauled up. The petitioner alleged that the Minister for Co·opel·a- tion called the petitioner and asked him to modify the note. Ttie modification suggested was to leave out any reference to Mudaliar and to omit the s~ggestion for handing over the matter to the police. · Another allegation concerning· Mudaliar. is that he was flouting orders of the Goverriment and health authorities and al,lowing effl- uents · from the distillery at Tirucharapalli without proper treatment into the river and· thereby causing hazards. The ~titioner wrote a note · asking for deterrent action and · launching prosecution again~t­ Mudaliar. The petitioner alleged that the Chief Minister expressed his annoyance.

The Minister for Co-operation denied that lie asked the· petitioner to modify .any note. The. Chief Minister denied that he ever asked for any modification in the note. The Chief Minister further alleges

in the affidavit that there is no note written by the petitioner suggesting [ 1974] 2 S.C.R. the launching of prosecution against Mudaliar, Both the Chief Mials· ter and the Minister for Co-operation state in their affidavits th~t

action has· been taken and is being pursued against all the persons concerned relating to the affairs of the Federation. The petitioners'. suggestion was accepted. There is no occasion for vindictiveness.

ThL: petitioner's allegation that the Chief Minister expressed annoy- ance at the petitioner's note against Mudaliar for causing hazards by disch~ge of effluent from the distillery is belied by the action taken by the Government. The petitioner in his note suggested a joint inspection and satisfactory arrangement for treatment of the effluent in accordance with the recommendation of the Water and Sewage Advisory Committee. The petitioner's proposal was accepted. The

petitioner also recommended implementation of a plant scheme .on pain of cancellation of licence. Industrial alcohol is manufactured in the distillery. This product is required by the cordite factory of the

Defence Department, and for pharmaceutical, medicinal and indus· trial products. The petitioner's recommendation to close the distillery would not only have created unemployment of a large section but also loss of important products.

The way the affairs of the distillery were handled according to the suggestion and recommendation of the petitioner does not disclose any evidence of malafide on the part of the Government.

The third instance of malafide alleged by the petitioner was that the Chief Minister did not like the suggestion of the petitioner that Vai[hialingam, the Private Secretary to the Chief Minister should be transferred.

The Chief Minister is also alleged to have said that the Chief Secretary should be transferred but not the Private Secretary. The Chief Minister denied that he ever made any stat~ment that the Chief Secretary should be transferred.

It is also alleged that the Chief Minister wanted to prefer Vaithia· lingam in the preparation of the seniority list of the Indian Adminis· trative Service. The petitioner alleged that he declined to oblige.

Therefore, it is said that the petitioner suffered by the mafafidcs of th~ Chief Minister. There were disputes between direct recruits and promotees in regard to fixation of seniority.

The Chief Minister on the advice of the petitioner passed an order on 22nd Dec., 1969 that the Gov~rnment could finalise the seniority list after considering the representations of the members.

The petitioner thereafter submitted a file to the Chief Minister that direct recruit Assistant Engineers of the Public Works Department also made requests for revision of seniority as between them and the promotee Engineers.

The Chief Minister under these circumstances cancelled his order dated 22 December, 1969. Subsequent to the cancellation of the order direct recruit Deputy Collectors filed writ petitions in the High Court claim- ing revision of seniority on the basis of Government order dated 22nd December, 1969. Those petitions are pending disposal in the High Court of MaCiras.

The petitioner also alleges that the Chief Minister refused to allow: Deputy Collectors in the select li.&t to act· in the Indian Administrative· Service posts and many retired at the age of 55 without acting as IA.S. c

c E. P. ROYAPPA V. TAMIL NADU (Ray, C.J.) Officers. The petitioner alleges that the Chief Minister thought that Vaithialingam would thereby gain seniority in the inter se seniority list of Deputy Collectors because the age of superannuation of. J.A.S. Officers is 58.

The respondents in their affidavits stated that the I.A.S Select~on Committee could not meet for the years 1968, 1969 and 1970 for various reasons. The petitklner in a note suggested that ·the inclusion of name in the Select List did not confer any ri~ht of promotion. The Chief. Minister agreed with the petitioner. These facts in relation to Vaitbialingam indicate that the petitioner was not only a party to all the decisions but also he was responsible for the decisions taken by the Government. There is no ground what- ever for· attribut~ng bad faith or improper motive to the Government against the petitioner.

The petitioner alleged other instances which gave rise to the wrath of the Chief Minis~r against the petitioner. There was land acquisi- tion at Manali for Madras Refineries. Large compensation was paid to the owner Ramkrishnan. The petitioner caused th~ suspension of the District Revenue Officer and other Officers for suppressin~ the note 1hat the Law Department had strongly opposed the proposal to award Jaree compensation.

The affidavit evidence of the respondents is that the~ awards were passed by the land acquisition authorltiC$. The Law Department was of the view that land a~uisition officers did not Department Ddvised disciplinary action agrunst the offieers. The Law Department recommended that the awards should be set aside. The Chief Minister, the Mlnister of Law both directed that suitable action should be taken. The file was sent to the petitioner for further action. The petitioner asked for suspens1on of the Officers. The Government approved the suspension because of the clear inst:uctions . of the Government. Disciplinary proceedings are pending . against these officers. lt is obvious that the petitioner's allegations of malafide against the Chie~ Minister are totally repelled by the correct facts. The petitioner alleged that the Chief Minister expressed the view that the Government could not tolerate the Chief Secretary who dared to oppose the proposal relating to Anna Samadhi. It is alleged as follows. The D.M.K. Party decided to erect a Samadhi c8lled Anna Samadhi. The Chief Minister wanted· to appoint a committee for management and maintenance of the Samadhi. The Chief Minister wanted to issue an Ordinance in that behalf. The oetitioner opposed the promulgation of the Ordinance. The idea of the Ordinance was dropped. It is said that thereafter a private trust was created tor administering the Samadhi. The trustees requested the Government to hand over the Samadhi to th~ trust. The petitioner opposed the pro- posa 1 on the &round that the portion of the land belonged to the Municipal Corporation and the land together with the Samadbi COBt t.b.e Government and the Corporation over Rs. 40 lakhs. The peti- tioner's allegations are all baseless. The Public Works Department examined the proposal to hand over the Samadhi to the private trust. The file was marked to the Chief Minister.

'The petitioner merely [ 1974) 2 S.C.R· noted "Chief Minister may decide". The petitioner did not oppose the propo mi. This fact also indicates that the Chief Minister did not bear any grudge against the petitioner.

The petitioner alleges that an extra-ordinary procedure was follow- ed in connection with the tender for the Veeranam Water Supply Scheme to the city of Madras. One Satyanarayana submitted the

tender. The amount involved was Rs. 20 crores. The Government agreed to oav an advance of Rs. 90 lakhs as loan to the contractor for buying niachinery. The petitioner did not approve the proposal. The petitioner said that a considerable time would be required to scrutinis~ the tender for such a large amount. The petitioner returned the file without scrutiny because the Minister for Works wanted it. This annoyed the Chief Minister. On the other hand Government alleges that eight firms submitted tenders for the Veeranam project. The tender of Satyanarayana Brothers was the lowest. They were a local company with wide experience in civil works and defence works. The Chief Secretary received· the file on 27 April 1970. Orders were to be issued urgently. The file was obtained by the Additional Olief Secretary from the Chief Secretary's office.

It was then ordered by the Minister for Works after discussion with the Chief Minister that the lowest tender of Satyanarayana might be accepted. Orders were issued on 7 May 1970 accepting the tender of Satyanarayana Brothers. The petitioner's alleged note that he wanted time to scrutinise the file is not found in the file. An expert team recommended the acceptance of the tender of Satyanarayana Brothers. It thus appears that the petitioner saw the file on n May 1970 after the tender had been ac- cepted on 7 May 1970. The petitioner did not raise any objection to the procedure which was adopted. When the matter came for final orders on 13 July 1970 the petitioner did not record any objection. This is yet another instanee which establishes that the petitioner made reckless all~gations imputing mala fides to the Chief Minister. The. other a11egat\on of the petitioner concerns the Cooum River Project. The allegation is that the petitioner pressed for an investiga- tion of the Cooum River Pro_joct.

The Chief Minister issued orders for· an enquiry. Later on the Chief Minister cancelled the order. The Chief Minister directed the Director of Vigilance to look into certain rumours ~bout mal-practices in the execution of the Cooum Improve- ment Scheme. The Director of Vigilance informed the petitioner and requested him to accord sanction to enable the Director to embark upon ~uch an enquiry. The relevant section put up before the peti· tioner a draft letter authorising the Director to embark on an enquiry. It is discovered that no action was taken by the petitioner. The Jetter of the Director dated 25 February 1970 addressed to tbe petitioner indicates that the Director asked for. authoris:~tion to make an enquirv. The file indicates that the petitioner on 26 Februarv 1970 sulunitted a note for Public (Secret Confidential) Deoartment for perusal. The Public (Secret Confidential) Deoartment received the file on 20 Sep- tember t 970. There are minutes of the Chief Muiister orderin~ the enQuiry.

The file was put up before the petitioner on 21 September 1970. The file was not received back. On 31 July 1971 the Chief c c o. c E. P. ROYAPPA v. TAMIL NADU (Ray, CJ.) 36 7 Secretary .asked the petitioner to send back the.

fit~. The petitio~r on 8 August, 1971 said that the file was not w1th h1m These. are lll· deed strange things. It is baseless to allege mala fides agamst the Chief Minist~:r. The br~nt of the petitioner's allegations against the Chief Minister c-entres on the mid-term poll in the month of February, 1971. The petitioner's allegations are these. In or about the end of January, 1971, the D.M.K. Party" of which Ramaswami Naicker is the leader took out an anti·religioua procession at ~em. ·It is alleged that .the proces- sion hurt the fe_ elings of devout Hindus. One Rauiaswam1, ~~~X known as "Cho" who is the Editor of a magazine called

took phCitographs of the procesSion. Th~ D. M. K. . Party obtaintd information thnl Cho was likely to publish the photograpbJ. The D . M. K . Party thought that in view of the impending elections the publication of the photographs would affect their prospects a~ . the

election. The petitioner received a trunk call from the Law Mm1ster who asked him to take action to prohibit publication of the photo- graphs-. The petitioner said that the Government had no power to prevent tht> pu~1ication.

The Chief Minister shouted on the telephone that the Deputy Superin·endent of Police should be'suspended and action should be taken against the magazine. The petitioner discussed the matter with th~ Inspeeto1 General of Police who said that it would be most unfair to suspend· the Deputy Superintendent of Police, Salem: The petiti.o~~er suggested that the matter might be dropped.

The Chief Minister: thereupon asked the Inspector General of Police to suspend the Orcle Inspector of Polic-e at Salem. The Inspector General of Police BUS· pended the Circle Inspector and registered a case against him. When the Chief Minister returned from his camp, he took the petitioner to task for registering a case against Naicker~

The Chief Minister in his affidavit states that. he told the petitioner th1t action should be taken agaitist the persons who had broken the law. -He denies that he took the petitioner to task for registering a case against Naicker. He denies that he shouted at the petitioner end ordered the Inspector General of Police to suspend any police officer. The other allegations by the petitioner are- these. On 28 February," 1971 the petitioner received a telephone message from tlie Deputy Inspector General of Police about various dashes involving looting, G . killi~g, bu~ning of houses·in the village in Tireunelveli District on the prevtous mght. The Inspector General of Police informed the peti- tioner that the Minister of Co-operation was at the back of the clashes. T~c. District Colle~t?r was not helpful in taking action against the Min1ster. The pehttoner told the Collector that it was a serious.dere- li~tion of duty. The petitioner asked the Collector to proceed imme- diately to the spot to take steos to maintain law and order. The peti- 1( tioner also asked for a full 'report.

. At 4 p.m. on 28 February, 1971 the Governor summoned the peti· ttoner and the Inspector General of Police. The Gover.nor summoned them to di§cuss about the deteriorating law and order situation in the [ 197-4] 2 S.C.R.

city and the Districts. The Governor made special reftrence to the complaints 'received by him about violence and intimidatilfn partic\llarly from Tirupattur (Ramnad>, Shivai Kundam, Udumalpet, Tifuvaana- maloi and Said:~pet constituencies from wher~ the Chief Minister and other Cabinet Ministers were contesting the elections. The Inspector Generul of Police told the Governor that lorry loads of goondas amed with deadly weapons had arrived in the city of Madras. The goondas numbered about 1500. They were brought at .the instance of th~: Chief Minister. The Goventor was annoyed and shouted "how was it possible to transport 1500 goondas froll\ nearly 300 miles by lorries without the knowledge of the police. I expect the police to do their duty.

The law and order situation has deteriorated considerably tlmmghout the State. In the Tirupattur Constituency of Ramuad District there was no semblance of law and order. I . had received

telegrams and complaints. Unless the Collectors and the Superin•en- dent of Police do their duty there would be no free and fair Elections··. The Governor told the petitioner "Mr. Chief Secretary, throu&hout, your career, you have· the reputation of carryini out the duties with- L)Ut fea; or favour and without bothering about the consequences. am sure that I could rely upon you to take special steps to arrest 'ilie deteriorating law and ord~r situarion and ensure free and fair Elec· tion.~". The petitioner assured the Governor that he would take strong uction.

The petitioner then discussed with the Inspector General of Police about the special steps to be tak'en to maintain law and order. The petitioner gaye orders to the Inspector General of Police that t.1e goondas should be arrested.

The Inspector General of Police aifeed to carry out the orders. Raid was carried out in the night. The Chief Minister sent for the petitioner and shouted at him. ''l am the Chief Minister. I am in charge of the Police Portfolio. How dare you order the arrest of persons in my constituency without my prior permission?" The petitioner said that he carried out his duty without favour ;Jnd fear. The Chief .Minister flared up and said "You had deployed Central Police every two feet at Thiagarayanagar, Mylapore, Saidapet and other places. I order you to withdraw im· mediately !he Central Reserve Police". The petitioner said that he had ;tsked for fiv.: battalions of Central Reserve Police for maintaining law and order situation. It was not possible to withdraw tbe Central Reservu Polic~. The Chief Minister shouted at the petitioner. After the polling was over the police force posted in the city was . 1ttoved tC' other polling areas. Law and order sit~ation deteriorated coosidcmbly in the city. A lady M.L.A. belong~ng to the Congr~ss Party wns dragged from her car and molested. Gooodas armed ~th "ticks and w.;:apr>ns were at large. The Inspector General of. Pollee discussed the matter with the petitioner. The petitioner asked them to round up all bad elements. More than 2600 bad elements were rounded up.

In the absence of the Chief Minister, two Minist~rs phoned the Commissioner of Police to release the D .M .K. nng leaders. The Commissioner of Police in accordance with .the peti- tioner's instructions refused to release them unless proper bail was c

c E. P. ROYAPPA v. TAMIL NADU (Ray, C.J.) offered. The Commissioner of Police informed the petitioner that the· Chief Minister himself had phoned him. The Inspector General of Police reported that the D . M. K. was pressing into service &oondas. He apprehended trouble as some of the Ministers were indulging in dan- gerous activities. The petitioner ordered the. Inspector General of Police to intercept lorry-loads of· goondas. The Chief Minister

~d the· Minister of Law, when they came to know about the instructions. issued by the petitioner to the Inspector General of Police ll.\lked the petitioner to withdraw the instructions. The petitioner refused to do so.

On 4 March, 1971 a Code message was received from the Home Ministry that the Ministry had received disturbing reports about clashes between various political groups in parts of the city. Offic.ers.

w<!re asked to be fully vigilant and take preventive measures. The petitioner discussed the matter with the Home Secretary, Inspector General of Police, Commissioner of . Police and other officers and issued instructions. The instructions we..:e that the people should not be allowed to collect within three furlongs of the counting centres. Bad elements should be rounded up 24 hours before the counting began.

The Collectors • and the Commissioner of Police shoul~ form Peace Committees and request the political parties not to take out victory processions or indulge in violence. Section 41 of the City

Police Act and Section 30 of the District Police Act were to be pro•· mulgated to regulate crowds. On 6 March, 1971 the Chief Minister rang up the petitioner and asked him to be present at the Cabinet meeting along with the Inspcc· tor General of Police, the Commissioner of Police and the Ho::ne Secretary.

At the Cabinet meeting the petitioner -was attacked . atJd. abused by the Law Minister. The petitioner, the Inspector General' of Police nnd the Commissioner oe Police were threatened with dire· consequences. The results were declared on 11 March. The D.M.K .. maintained its majority.

After the elections a meeting of all the District Collectors was fixed for 6 April, 1971, at Madras. The Chief Secretary as the Ser- vice Chief was responsible for conducting the proceedings. The Chief Minister called a Press Conference around 12 mid night at which· he announced that the petitioner was appointed as Deputy Chairman of the State Planning Commission and that he would be transfe1red' forthwith.

It is in this background of long narration of events at the time of Election that the petitioner alleges that the Government and the Chief' Minister acted malaiide against the petitioner because of the stem~ nttitude of the petitioner against the D.M.K. Party.

The Chief Secretary of the State in his· affidavit states that there is· no record of any one of the matters alleged by the petitioner with· regard to law and order situation on the eve and at the time of the election' save and except the instructions issued by the petitioner on' 4 March, 1971 with regard to promtilgation of section 41 of th~ City· Police Act. and section 30 of the District Police Act; rounding up of: [ 1974] 2 s.c.R.

bad elements and probation offenders and prohibition of processions. The order passed by the petitioner was reviewed at the State Cabinet Meeting on 6 March, 1971. There were two modifications.

First, the prohibition against collection of people within three furlongs of the counting centre was_ changed into safe distance, in place of three furlongs. The rounding up of rowdies and bad elcm~n!$ and probation ofienders was restricted only to "listed rowdies".

The Home Minis- try Code message dated 4 March, 1971 about clashes between poli· tical groups was received but th~ Government did not attach special or particular importance to the message.

The Secretary Ministry of Home Affairs sent a message on 16 March, 1971 commending the excelle!Jt arrangements made for ensuring free and fair elections. The Government, therefore, states that law and order was well maintained. The letter dated 16 March, 1971 was a circular letter sent to all the Chief Secretaries and therefore the Government states that no speciaf credit can be claimed by the petitioner or ascribed to the petitioner's aUeged instructions.

There is an affidavit by the Chief Minister that no goondas were brought by him into the city and the allegation about raid on 1 March to round up the goondas is described by the Chief Minister to be false. The Chief MiD.ister also denies that the petitioner at any time stated that the Inspector General of Police was expecting serious clashes in Saidapct, Mylapore and Thyagaroya Nagar.

The Chief Minister denies that he asked the Commissioner of Police to release the D.M.K. leaders. The Governor of Tamil Nadu in his affidavit states that the petition- er and the Inspector General of Police met him on 28 Fc.bruary, 1971 at 4 p.m. at his instance to discuss the arrangements made or being made for the effective maintenance of law and order.

The Governor 'brought to the notice of the petitioner and the Inspector General of Police that certain allegations had been made in regard to incidents of violence and intimidation.

The Inspector General of Police told. ·the Governor that the reports would be investigated. The Governor denies that he made a reference to complaints of violence or intimida- tion from the constituencies of Chief Minister and Cabinet Ministers. The Governor also denies that the Inspector General of Police had informed him that 1500 goondas had been rounded up.

The Gover- nor denies that he ever paid compliments to the petitioner about his reputation or carrying out his duties without favour or fear. The Minister of Labour in his affidavit denies that he phoned up the Commissioner of Police.

The Minister for Harijan Welfare to the Government of Tamil Nadu denies havin,g telephoned the Com· missioner of Police to release the arrested leaders. The Minister for Food denies that the D.M.K. employed goondas and he with other Ministers indul~d in violence.

He also denies that the Minister start- .ed a tirade against the petitioner, the Inspector General of Police and the Commissioner of Police. The Inspector General of Police states that there was no dtteriora· ·tion in th.e law and order situation. He states that out of 160 com- ·plaints received throughout the State 69 were against D.M.K. c

II c E. P. ROYAppA v. TAMIL NADU (Ray, C./…) against the Congress (0) and 6 against the other parties and the re- maining 39 are against the Police and other non-political bodies. The ~nspector General of Police denies that there was any organised vio- lence.

Kuppuswamy, the Inspector General of Prisons who held the pOit of Commissioner of Police at the time of the elec~on states that the allegations made by the petitioner about tirade against the petition· er and the Inspector General of Police and the Commissioner of Police are baseless.

The petitioner made allegations of malafides to suggest that the petitioner was an honest officer and the Chief Minister and the other Ministers did not want such an honest officer and therefore they got rid of him.

The most significant feature in the allegations of mala- fides is that when on 7 April, 1971 the petitloner was appointed to act as Deputy Chairman, Planning and he went on leave he. did not at any stage state anywhere that the order was .made malafide. The first letter where the petitioner alleged malafides js dated 7 June, 1972. The allegations of malafides .are not contemporaneous but after thoughts at a distance of one year.

That was when the petitioner re- turned from leave after one year and he was appointed to the post of Deputy Chairman, Planning ~ommission. Even in that Jetter the only allegation about malafide is that the petitioner too!C strong steps about maintenance of law and order at the time of the elections in 1971 against the views of the Chief Minister and the Ministers. Xt,

therefore, follows that until the petition was filed in the month of July, 1972 the respondents were not aware of various allegations of malafide made in the petition. Therefore, when the impugned order was made on 26/27 Iune, 1972 it is manifest that the Government did not make the order out of any itnproper motive or any indecent haste or out of nny ingenious inspiration to get rid of the petitioner.

Another notice- able feature in the allegations of malafides is that the petitioner all throughout describes himself as a person who acted without any fear or favour and enjoyed the reputation of being a strict and honest offt- ccr, and, therefore, the Government contrived to remove the petitioner from the post of Chief Secretary. Honest and fearless cadre officers arc not unknown and rare as the petitioner suggests.

Nor are intre- pid officers in cadre posts thrown out of office because of expression of views about law and order situation. In the petition the petitioner has ascribed to the Chief Minister, the Governor and a few other Minis- ters certain statements having been made by them. The statefllcnts are quoted to be words of mouth of the. Chief Minister or the Gover- nor or the Ministers.

Th~ petitioner has nowhere made contempo· raneous entry or record of such utterances. It is difficult to believe that t11c petitioner would remember identical words in long scqucnct' and set them out· with exactitude in the petition. These allegations arc made in the petition for the purpose of giving semblance of truth and. lending colour to thronicle.

The affidavit evidence indicates that the petitioner carried otit nor- mal duties and exercised care· and caution a~ the time of the election. That is expected of all officers. It is also expected that officers wilt maintain a balanced and firm hand in regard to law and order situa- tion as well as administration.

Civil servants are expected to advise . 372 [ 1974] 2 S.C,R . Ministers in the context of files and rules. The Government and Ministers are also expected to maintain a balanced and impersonal attitude in regard to advice given by civil servants. In the present case, it appears that the petitioner gave advice in course of duty. The

Government practically in all Cl!Ses accepted the advice of the peti- tioner. There does not appear any instance of acrimony or disagree- ment between the Government and the petitioner.

There are no .records to suggest that the petitioner advised one way and the Goven.- ment acted in an opposite manner. The events alleged at the time of the elections are in aid of the _petitioner's contention that his dealing of the law and order situation was so firm that the- Chief Minister and other members of his ·party became alienated.

The petitioner suggested that the Chief Minister and the members of his party were responsible for introducing violence and intimidation. The further suggestion of the petitioner is that the petitioner exposed the activities of the D.M.K. Party. ·Complaints against the D.M.K. Party were like complaints against other political parties.

The affidavit evidence indicates that the law and order situa- tion was kept under normal control. All the officers of the State in- cludini the police service discharged their duty in the best interest of administration as also in pub1ic interest.

The petitioner did not .achieve anything extraordinary. As the Chief Secretary it was the duty of the petitioner to see that situation nowhere went out of control. The Chief Minister and the members of his party cannot be said on 1he affidavit evidence to have committed acts of violence or intimida- tion.

The entire affidavit evidence establishes beyond any measur~ of doubt that the petitioner's allegations imputing malaftdes against the Chief Minister are baseless. The petitioner's allegations were in aid of suggesting vindictiveness and vengeance on part of the Chief Min~ster Facts

and circumstances repel any such insinuation and innuendo. For these reasons the contentions of the petitioner fail. The pct1· :tion is dismissed Each party will pay and bear its own costs. JUDGMENT

BHAGWATI, J. We are in agreement with the final conclusion reach- c ed in the jwlp1ent delivered by the learned Chief Justice, but our .:approach and reasoninc are a little different and we are, therefore, delivering separate judgment expressing our views on the various .questions arising in tbe petition.

The petitioner is a member of the Indian Administrative Service E. P. ROYAPPA V. TAMIL NADU (Bhagwati, /.) in the cadre of the State of Tamil Nadu. On 2nd August, 1968, the – petitioner w.as confirmed in the selection ifade of the Indian Adminis- trative Service with effect from 22nd May, 1961. The petitioner was successively }X!Sted to act as Fifth Member, Board of :Revenue, Fourth Member, Board 9f Revenue, Third Member, Bo~d of

Revenue, ~md &cond Member, Board of Revenue on 25th February, 1964, 5th Au&USt, 1965, 30tb March, 1966 and 5th Apru, 1969. On lltk July, .1\ 19o~ ttle State of Tamtl Nadu passed an order sanctioning the cr~ation of a temporary post of Additional Chief Secretary to the Government for a period of one year and directed that the posts of Chief Secretar_y to Government, Additional Chief Secretary to Government and First Member of tne Board ~of Revenue should be deemed to b~ in the same cate&ory and should be interchangeable selection posts, and by the same order promoted and posted the petitioner to act as Additional Chief Secretary to Government in the newly created post.

Now, ac- cording to Sh. lilA of the Indian Administrative Service (Pay) Rules, 1954 the posts of Chief Secretary to Government an<1 First Member, Boan:f of Revenue carried respectively pay of Rs. 3,00W- and Rs. 2,750/-.

But since the State Government had by the order dated 11th July, J 969 directed that the posts of Chief Secretary to Govern- ment. Additional Chief Secretary to Government and First Member, Board of Revenue should be in the same category and interchangeable· n was necessary that there should be same pay for all the three posts and the State Government, therefore, by a letter dated 7th August, J 969 requested the Central Government to amend Sch. IliA of tbe )ndian Administrative Service (Pay) Rules, 1954, so that all the three posts could be of the same ra;1k carrying the same pay. nnmdy. Rs. 3,000/-.

The Central Government by its letter in reply dated ,26th September, 1969 pointed out to the State Government that the status of Chief Secretary to Government as the head of the Secretariat or~nisation in the State should remain unquestioned and it should not be a1lowed to be diluted by the creation of the post of Additional Chief Secretary carrying the same status and emoluments. as the Chief Secre- tary and suggested that the State Government may consider addin~ the post of Additional Secretary to the cadre temporarily for one year in tbe pay of Rs. 2,750/- or in smaller sca1e, but not in the scale of Rs. 3,000/- as desired by the State Government. So far as the request of the State Government in regard to the post of First Member of the Board of Revenuo was concerned, the Centr~l Government agreed tMt there should be one

non-secretariat· post in the State Cadre carrying the same salary as that of the Chief Secretary and stated that they were taking steps to provide that the First Member, Board of Revenue should carry the same pay as admissible to the Chief Secre- tary. The. Central Govern,ment accordingly issued a.notification dated · 14th January, 1970 in pursuance of r. 11 of the Indian. Administrative Service (~y) .Rules, 1954 amending Sch.' III. with effect from. 17th December, 1969. so as to pnwide that the pay, of F'.trSt Member, Board of Revenue sliall ·be Rs. 3,000, tJui.(is, ·the same as that of the Chief Secretary. The post of. Brst Member,. Board of Revpnue was .thus equated to tliat of the Chkf Secretary in l;'ank .and status, though the pos·t of Additional Otief Seyretary was not.

[ 1974] 2 S.C.R • In the meantime, on 13* November, 1969, the then Chief Secfe- taiy Ramakrishnan, who was a IDI'ffil:ler .of the Indian Civil.Service, was "retiring on completion of 35 years service, and the question, _there,. fore,· arose as to · who should be appointed in .his place. _The. file. in this- connection' was pfaced before the ~ef Minister;. who_ is 1he second respondent before tis, and a list of eleven senior-most members of the Indian Civil Service and the Indian Administrative Service was submitted to him for his consideration on 30th October, ·1969. The second respondent made an elaborate note on the file on 12th Novem- ber, 1969 pointing out that the post of Chief Secretary is a selection post and in making ·selection merit should be· considered and not

seniority alone and the person best fitted to discharge the onerous duties of the post should be selected. . The second respondent then proceed- ed to consider the merits of the eleven officers whose names had been placed before him and selected the petitioner for the post st<~:ting that "among the present set of senior officers-E.P. Royappa is the best suited for· the post" and "he may, therefore,- be promoted as Chief Secretary". This note was approved by .the Gove~nor on the same day, namely, 12th November, 1969. On the next day, that is, 13th November, 1969 the draft order in regard to the appointment of the petitioner was prepared and it was approved by the second rc.s- pondent. The draft order stated int~r alia that the petitioner "is pro:… mated and posted as Chief Secretary vice Thiru Ramakrishnan, I.C.S. · retiring from service with effect from the afternoon of 13th November. 1969". The final order in the name of the Governor duly authenticated · by. the Chief Secretary was issued on the same day but it was differently c

worded in one material respect. .Paragraph 5 of that order ·provided that th::: petitioner "is promoted and pos~d to act as Chief Secretary to Government vice Thiru Ramakrishnan, I.C.S. who has been granted refused leave with effect from 14th November 1969." The reference here was to the fact that Ramakrishnan .has been granted refused leave '-'–

.. , -I for four months from 14th November, 1969 under Fundamental Rule 86, cl: (a). The petitioner was accordingly promoted as Chief Secre.- r tary. Whether such promotion was by way of substantive appointment · ~' orhin an odffic

iatil!gh cahpacity is a matfterhwhich. we woul_d have to dcci4~ ,j: . . t w eri. we ea Wit t c arguments o . t e parties. ·. · ~ '. :'i • On 1st April, 1970, the Government of India. proposed that in view ·of the fact that the ·responsibilities of Chief Sccretacy to State Government had multiplied · and become complex to such an· extent that they would no longer be. regarded as less onerous than those of Secretary to the Government of India: the . post of Chief Secretary to State. Government should -be equated to the post "of Secretary .to the <_:iovernment-of India in respect of pay and invited the comments, of· various State Governments -on this pro~osal. -The State of Tamil · Nadu -conveyed its- assent to the -proposal· but suggested that since· the, posts ·of Chief Secretary and Frrst ·Member. Board ·of Revenue in the State _were equal in ·status and interchangeable; both these posts .should be ·upgra~ed ·to ·that-of Secretarjr· to the .. Go\remmerit of ]ndia. · The Government. of India did ,not accede to· the !equest of the State of Tamil Nadu in so far as the post of Fi~t Member, ,G

E. P, P.OYAPPA V. TAM[L NADU (Bhagwati, ].) Board of ;Revenue was cooccmed, but in regard to the post of· ~f Secretary, amended Sch. Ill to the Indian Administrative Service (Pay) Rules, 1954 by a .ootihcation dated 31st August, 1970 raisin' the. pay of Chief Secretary from Rs. 3,000/- toRs. 3,500/- per month so as to bring him on par with Secretary to the Government of India. The rank and status of the post of Chief Secretar"y was thus enhanced and that post was raised above every other cadre post in the State including the post of First Member, Board of Revenue.

The general elections to the Parliament· and the State Legislature weco held in Tamil Nadu in the first week of March 1971. The rellults of the poll were declared on 11th March, 1971 and the DMK party under the leadership of the second respondent retained its

majority in the State Legislature and formed the new Government with the second respondent as the Chief Minister. According to the petitioner, there were several matters in which he had

the .W.fortune to incur ~ displeasure and wrath of the second res- pondent dllling the period prior to the elections as also at the time of tho elections whilst actin& in. disc~ of his duties as Chief Secretary, and the second respondent, . theJtefore, on being returned to power, decided to remove him from the post of Chief Secretary. With that end in \Tiew the second respondent announced at a ~ Conference held by him at mid·night on 6th Apri1., 1971 that the petitioner was transferred. as Deputy Chairman of the State Planninc Commission. There wrua no State Planning Commission in existence on that date though it appears that the proposal to set it up bad been under consideration of the Government for some time.

The petitioner was also not given any inkling of the proposed appointmeat . and he came to learn about it for the first time on readin&r; the news- papers in the morning of 7th April, 1971. The formal order in this connection was issued by the Stato ~ernment on 7ti. April, 1971 and by this order the State Gov~t accorded sanction to tlae. creation of a temporary post of Deputy Chairman in the State Plaa- ning Commission in the grade of Otief Secretary .for !!- period of one f

year with effect from the date of appointment and appointed the peti- tioner to that post providing that he shall be entitled to the same rank and emolumcmts as admissible to the post of Chief Secretary. The petitioner obviously felt that he was being denigrated and he, thece- fore, did not join this post and went on lea-ve from 18th April, 1971 · and the leave was renewed by him from time to time upto 5th June, 1972.

The State Planning Commission was in the meantime con- stituted on 25th May, 19?1. and since the petitioner was on leave, u order dated 19th August, 1971 was issued by the Stato Government directing, in modification .of the earlier order dated 7th "April, 1971, that the post of Deputy Otairman should be deomed to have been sanctioned for a period of one year from 13th April, 1971 and that Raja · Ram, who was First Member, Board of Revenue, should · be placed -in charge of that post until further orders. The post of Deputy Chairman having been created for a period of one yoar only, came to an end ort 13th April, 1972 and it was not thereafter.continued until 6th June, 1972 when it was again revived on return of the peti- tioner from leave .. The State Go-vernment passed an order dated 6th J2-Lmscrt64

31-l [ 1974] 2 S.C.R. I I June, 1972 sanctioning on(;e a~ain the creation of a temporary post of Deputy Chairman on a pay of Rs. 3,500/- per. month for a period o£ one year and appointing the petition~ to that post on return from leave. Against this order the petitioner made a representation to the second respondent on 7th June, 1972 stating that, without the approval of the ·Central Government, the continuancE of the post of Deputy Chairman in the rank of Chief Secretary for a period of more than one year would be invalid under r. 4(2) of the Indian Administrative Service (Cadre) Rules, 1954. How far this contention was valid is 3. matter we shall presei!tlY examine and it need not detain us. . The next event that happened.was-whether as a sequel to the reprcsenta· tion of the petitioner or not, we do not know-that the· State Govcm~ inent issued an order dated 26th June, 1972 sanctioning the creation n

of a temporary post of Officer on Special Duty "of the rank of .Mem~ c . ber, Board of Revenue" for a period of one year for streamlining and . · rationalising the structure of Tamil Nadu General Sales Tax Act and similar enactments relating to commercial taxes and rules. On the next day, i.e., 27th June, 1972 another order was issued by the State

Government modifying the earlier . order to the e!Icct that the tempo- rary post of Officer on Special Duty shall be "in the. grade of Chief Secretary to Government" and appointing the petitioner to this post. The petitioner did not join this post too and proceeded on long leave which continues till to-day. We enquired of the learned Advocate General who appeared on behalf of the State of Tamil Nadu t\S to what arrangement had been made to fill the post of Officer on Special Duty in 'the absence of the petitioner who had gone on leave and in answer to our inquiry, we were informed by him that a Member of the Boord of Revenue was discharging the functions of . this post in addition to his normal functions. It may be winted out here that after tho peti- tioner was transferred from the post of Deputy Chairman and appoint~ ed Officer on Special Duty, an order dated 29th June, 1972 was passed by the . State Government abolishing the post of Deputy Chairman sanctioned under the earlier order dated 6th June, 1972, sanctioning the creation of a new post of Deputy Chairm!l.n "in the g~ade of First Member, Board of Revenu£" on a pay of Rs. 3,000/- per month and aopolnting Raja Ram; First Member. Board of Revenue to that post 4'in addition to his appointment as First Member, Board of Revet\ue". One other fact may also be noticed-and that is a little irnportant- that nn transfer of the petitioner fro111 the. oo•;t of. Chief Secrctan', one Sabanayagam, who was admittedly junior to' the petiti.oncr, was promot~ as Chief Secretary and we are told that he has been confirm~ ed in that pos-t.

The petitioner was obviously hurt by these mther disint!enuous moves artonted by the State Government at the instanc~ of the second respondent to remove him from the post of Chief Scc- retarv and he, therefore, filed the present ·oetitioQ. under Art. 32 of the Constitution challengini! the validitv of his transfer from tho post of Chief Secretary, first to the post of Deoutv Chairman,· State- Plann- ing Commission and then .to the post. of' Officer on Special Dutv, on th~ followin<l' crnunds. name1v. ( 1 ) it wa-; contrarv to the nroviso to r. 4(2) of the Indian Adffiinistrati:vo .. ~rvice (Cadre) Ruks,. 19541 3nd r. 9. sub-r. (1) of the Indian Administrative Service (Pav) Rule~. 1954; (2) it wn<; violative of Arts. 14 nnd 16 of the Cor.-tittttion ::1.s lJ

Fr tt -~ , II u c n· E, P. ROYAPPA V, TAl\IIL NADU (Bhagwati, J.) the. posts of Deputy Chairman, State Planning Commission and Offi· cer on Special Duty were inferior in rank and status to that of the Chief Secretary; and ( 3) it was made in mala fide exercise of power, not on account of exigencies of administration or public service, but because the second respondent was annoyed with the petitioner on account of various· incidents rcfet;rcd to in the petition, and wanted him out of the way.

We sl}.~ll elaborate these grounds as we proceed to discuss them. But before we examine these . grounds we must first determine what was the nature of the appointment when the petitioner was pro· moted as Chief Secretary. Was he promoted in aj substantive capacity or in an officiating capacity ? The contention of the petitioner was that he was appointed substantively to the po.s.t of Chief Secretary and for this purpose he relied on the draft orcfer approved by the second respondent as well as the Governor which did not use any words. ~uggesting that his promotion was in an acting capacity and promoted and posted him as Chief Secretary without any qualifying or limitative . words.

The petitioner of.course could not dispute that the words used in the authenticated order were "promoted and posted to act ll~> Chief Secretary", but his argument was, firstly, . that the words "to' act" qualified only "posted" and not "promoted" and in this con· text they meant nothing more than this, namely, that the petitioner was posted to function or work as Chief Secretary and not that he was promoted in an acting capacity, ~d secondly, that even if ti:te words "to act" had the effect of makmg promotion an acting one, the authenticated order did not correctly embody the real decision of. the State Government which was to be found in the draft .order and the draft. order must, therefore, prevail over the authenticated order. TI1e respondents sought to repel this contention by a two.fold argument.. The first argument was based on the tenus of the authenticated order · and it was said that that was the final order duly authenticated by · the then Chief Secretary and it was not open to the petitioner to go ?ehind that order and ~efer to the draft order for purpose of varying It., terms. The authenticated order, contended the .respondents, dearly · &bowed that the promotion and posting of lhe petitioner as Chief ~ccretary was in an officiating capacity.

The other argument urged In the alternative was that though Ramakrishnan retired on attaining the age of superannuation on the afternoon of 13th November, 1969, he was granted refused leave . for a period of four months after the date of his retirement under Fundamental Rule 86, cl. (a) and his service was, therefore, extended and he continued to retain his lien on the post of Chief Secretary until the expiration of such period of four months, i.e, up to 14th March, 1970 and the petitioner could not. therefore, possibly be

appointed substantively to the post of Chief Secretary till that time. We think. on a consideration of these arguments, that the contention of the petitioner that he was promoted as Chief Secretary in a substantive capacity is not well founded. The authenticated order provided in terms clear and e;plicit that the petitioner was promoted and posted to act as Chief Secretary. 11l~

words "to act", according to plain grammar and language, governed not only "posted'' but also "promted", The petitioner was both [ 1974] 2 s.c.R. "promoted and posted" as one single composite event, "to act" as Chief Secretary and that clearly meant that the promotion was in an acting capacity.

But the argument of the petitioner was that the words "to act" were not to be found in the draft order which recorded the original decision of the State Government and they were introduced in the authenticated order by mistake and should therefore be ignored, or in other words, the authenticated order should be read without the words "to act" so as to be in conformity with the draft order. The respondents resisted this attempt to go behind the authenticated order and c.ontended that the authenticated order was the final order and it was not open to the petitioner to say that it did not correctly retlect the order as made by the State Government.

We do not think this contention of the respondents is sound. It is now well ,settled law that when an order is authenticated, the only challenge that is ex- cluded by the authentication is that it is not an, order made by the Governor. The validity of such an order can be questioned on other ground,s. [Vide King Emperor v. Shivnath Banerjee(l) and State of Bihar v. Sonabati( 2 ) ]. The authentication does not, therefore, _pre- clude the contention that the order though made by the Governor suffers from some other infirmity. The authenticated order is merely an expression of the actual order which precedes it and which is made by the appropriate authority entitled to act on behalf of the State Government. As pointed out by this Court in Srate of Bihar v. Srmabati(2- "the _Process of making an order precedes and is different from the expression of it". It should, therefore, be axiomatic that i! the authenticated order doe5, not correctly reflect the actual order made, or to put the same thing differently, the actual decision taken by the State Government, it mus~ be open to correction. The tonnal expression of the order cannot be given such sanctity that even if found to be mistaken, it must prevail over the actual order made and override it.

That would not be consonant with reason or principle, It would be an artificial rule calculated to obstruct the cause of truth and justice. Here in the present case it is the citizen who contends

that the authenticated order does not correctly reproduce the actual order made by the State Government. But there may conceivably be cases where the Government may also find that !here is a mistake in the authenticated order and it requires to be rectified. Take for example a case where the actual decision taken by the State Govern- ment is that a person should be appointed to a post in an officiating capacity but by mistake the appointment is described as substantive appointment in the authenticated order. Can it be suggested in such a case that the Government cannot rectiJly the mistake by amending ~he authenticated order so as to bring it in accord with the real deci- sion ? We have, therefore, no doubt that it was1 competent to the petitioner to contend, by reference to the draft order which containe~ the original decision of the State Government. that the authenticated order did not correctly reflect Sl!ch decision and suffered from an error. But the question is whether such contention can succeed.

Now, if we loolc at the c4:aft ordedt is clear that it merely uses the words "promoted and posted as Chief Secretary". It is silent as to (1) 72 I.A. 241. (2) [1961] 1 S.C.R. 746 c

c E. P. ROYAPP,A V. TAMIL NADU (Bhagwati, /,) the nature of the promotion. It does not say whether the promotion is by way of substantive appointment or in au officiating ~pacity. It could be either, consistently

with the words used. It is the authenticated order which says for the first time clearly and definitely by using the words "to act" that the promotion is in an officiating capacity. There is thus no inconsistency between the draft order and the authenticated order from which any eror can be spelt out in the authenticated order. The authenticated order in so far as it uses the words "to act", does no more than speak on a matter on which the draft order was; silent. It appears that before issuing the authenticated order the appropriate authority applied its mind to the question as to whether the promotion should be in a substantive capacity or in an officiating capacity and since Ramakrishnan was going on reflused leave for four months from 14th November, 1969 and was accordingly, as we shall presently point out, entitled to retain his lien on the post of Chief Secretary till that date, decided that the promotion should be an officiating one as indeed it could not be other- wise, and that is why the authenticated order was

issued with the addition of the words "to act" after the expression "promoted . and posted". There is of-course no positive evidence to this effect, but it would appear to be a reasonable inference to make in view of the substitution of the words "retiring from service with effect from . the afternoon of 13th November, 1969" in the authenticated order. It is, therefore .•. clear that the authenticated order correctly reflected the final d~.Jston of the State Government and under it the promotion 0 { the pehttoner w·as in an acting or officiating capacity.

The alternative argument. of the respondents must also lead us tG the same ctmclusion. This argument has been dealt with in the judgment of the learned Chief Justice and we do not think we can usefully add anything to what has been stated there by the learned Chief Justice. We entirely agree with the reasoning and the conclusion

of the learned Chief Justice on this point and hold that since Ramakrishnan proceeded on refuged leave for a period of four months from the date o~ his superannuation he continued to . retain

his lien on the post of Chief Secretary until 14th March, during the period of refused leave granted to him, and the promotion of the petitioner under the order dated 13th November, 1969 could not therefore be otherwise than in an officiating capacity. The post of Chief Secretary became vacant on 14th March, 1970 but at no time thereafter the petitioner was confinned as Chief Secretary and he had, therefore, no right to hold the post of Chief Secretary at the date w~el? he was transferred as Deputy Chainnan, State Planning Com- mtsston. But that does not mean that he was not entitled to be con- sidered for confirmation, and since he was not confirmed, but Subana- yagam, who· was junior to him, wa51 promoted and confirmed, the question must inevitably arise whether what was done was in mala fid~ e~ercise ot power or in violation ot Arts. 14 and 16 of the Constitu- tiOn.

We now turn to the first ground of challenge which alleges con- travention of the second proviso tor. 4(2) of the Indian Administrative Service (Cadre) Rules, 1954 and r. 9, sub-~. (1) of the Indian Admi- [ 1974] 2 S.C.R·

.nistrative Service (Pay) Rules, 1954. So far as the second proviso to r. 4(2) of the Indian Administrative Service (Cadre) Rules, 1954 is concerned, we do not think it has any application. That proviw merely confers limited authority on the State Government to make temporary addition to the cadre for a period not exceeding the limit therein specified. The strength and composition of the cadre can be determined only by the Central Govemmeot under r. 4( 1) and the Central Government alone can review it trienially or at any otl1er iutermediatc time under r. 4(2). The State Government cannot add to the cadre a. different category of posit than that already existing ·in the cadre, nor can it make any permanent addition to the number of posts of a particular category in the cadre, for to do so "!OUld mean, in the first case, alteration in the composition of the cadre, and in the second, alteration in the strength oJ the cadre, both o~ which would be impermissible to the State Government.

But the State Government can, by virtue of the relaxation granted by the second proviso, make temporary addition to the cadre provided the post added carries duties or responsibilities of a like nature to a cadre post. This would mean, as pointed out by the Government o( India in its decision recorded at 4.1 at page 741 of the All India Service~ Manual (Second Edition) : "The exercise of this power by the ·State Government with reference to a post involves an obje<;:tive a~ment of the nature of the duties and responsibilities attached to that post in comparison to those attached to a cadre post.

Thus posts cannot be added temporarily to the cadre unless such posts already e:xisl in the cadre". The State of Tamil Nadu could not, therefore, add the pos~s of Deputy Chairman, State Planning Commission and Officer on Special Duty under the second proviso, as these posts did not exist fn the cadre as constituted by the Central Government. They were new categories of posts ·'created by the State Government. The second proviso to r. 4(2) has, therefore, no application and the challenge based on it must fail.

The petitioner is, however, on firmer ground when he bases hi~ challenge under r. 9, sub-r. (1) of the Indian Administrative Service (Pay) Rules, 1954. Rule 9, in so far as material, provides as follows : "(1) No Meml;ler of the Service shall be appointed to

a post other than a post specified in Schedule III, unless the State Government concerned in respect of posts under its control, or the Central Government in respect of posts under its control, as the case m~y be, make a declaration

that the said post is equivalent il). status and responsibilitv to a post specified in the said Schedule. (2) The pay of a member of the Service on appointment to a post other than a rost specified in Schedule III shall be the same as he would have been entitled to, had he been

appointed in the pQ5t to which the saia post is declared equivalent.. ( 3) :XXX XXX :XXX ( 4) Notwithstanding anything contained in this rule. the State Government concerned in respect of any posts

c r E. P. ROY/1-PPA V, TAMIL NADU (Bhagwati, J.) under its control, or the Central Government in respect of any posts under its control, may for sufficient reasons to be recorded in writing, where equation is not possible, appoint any member of the Service to any such post without making

a declaration that the said post is equivalent in status and responsibility to a .post $J>ecified in/Schedule ill." c 1l Tliis rule is intended t~ provide a safeguard l>r the protection at a member of the Indian Administrative Service. Sub-r. ( 1) enact9 that no member of the Indian Administrative Service shall be appointed to a post other than a pos~ specified in Schedule Ill, or in other ~ds, to a non-cadre post unless the Government makes a declaration that sucb non-cadre post is "equivalent in status and responsibility'' to a post specified in the said Schedule, i.e., to a cadre post If the State GOvernment wants to appoint a member of the Indian Admini8tlative Service to a non-cadre post created by it, it cannot do so unlts.J it makes a declaration setting out which is t.he cadre post to which such non-cadre post is equivalent in status and responsibility. The making of such a declaration is a sine qua non of the exercise of power under sub-r. (1). It is! not an idle fonnality which can be dispensed with. at the sweet·will of the Government. It has a purpose behind it and that is to ensure that a member of the Indian Administrative Service is not pushed off so a non-cadre post which is inferior in status and responsibility to that occupied by him.

So far as cadre posts are concerned, their hierarchy would be known, ·but a non-cadre post created . by the Government would be stranger in the hie.rarchy, and that is why sub-r. ( 1) requires that before appointing a member of tlie Indian Administrative Service to such non-cadre post, the Go~m­ ment must declare which is the cadre post to which such non…cadre post is equivalent in status and responsibility, so that the member of tile Indian Administrative. Senice who is appointed to such non…cadre post, would know what is the status and responsibility of his post in Lerms of cadre posts and whether he is placed in a superior, or ~ual post or he is brought down to an inferior post. If. it is the latter, he would be entitled to protect his tights by pleading violation of Art. 311 or Arts. 14 and 16 of the Constitution, whichever may be appli- cable. That would provide him effective insulation against unjust or unequal or unlawful treatment at the hands of the Government. The object of'this provi·s-ion olearlv ·i!\ to ensure that the public service!! are, in the discharge of their duties, not exposed to the demoralising and depraving effects of personal or political nepotism or victimisation or the vagaries of the political machine. The determination of eqW.. valence is, thereibre, made a condition precedent before a member Of. the Indian Administrative ServiCe can be appointed -'to a non-cadre poSt under sub-r. (1). It is a mandatory requirement which must be obeyed.

The Government must aoply it51 mind to~ tbe nature and responsibilities ot the ·llnctions and duties attached to ·the non-cadre pOst and determine the equivalence. There the pay attached to the non-cadre post . is not material. As pointed out by the Government of India in li decision given by it in MHA letter No. ·32/52/56-AIS(U) dated 1Oth J ul v. 19 56' the basic criteril)Jl ·for the determination of equivalence is "the natute and responsibilities of duties attached to the post and not the PlY attached to the post". Once the declaration of .382

[ 197~ ] 2 s.c.R. equivalence is made on a proper applieation of mind to the nature .and responsibilities of the functions and duties attached to th~ non· cadre post, sul>-r. (2) says that the pay of the member of the Indian Administrative Service appointed to such non-cadre post shall be the same as he would have been entitled to~ had he been ap~ointed in the cadre post to which such non-cadre post is declared equ1valent. He is thus assured the pay of the equivalent cadre post and his pay is protected. Now this declaration of equivalen~e, though imperative, is not conclusiveJn the sense that it can never be questioned. It would be open to a member of the Indian Administrative Service to contend, nQtWithstanding the declaration of equivalence, that the non-cadre post to which he iS1 appointed is in truth and reality inflerior in status and responsibility to that occupied by him and his appoiatment to such .p.on·cadre post is in violation of Art. 311 or Arts.

14 and 16. The burden of est;ablishing this. would undoubtedly .be heavy :and th~ court would be slow to interfere with the declaration of equivalence made. by the Government. The Government would ordinarily be the best Judge to evaluate and compare the nature and responsibilities to the ru~ctions and duties attached t,o different posts with a view to .determmmg whether or not they are equivalent in status. and respomi- bility and when the Govrrnment has declared equivalence after proper application of mind to the relevant factors, the court would be ,uosr reluctant to venture into the uncharted and unfamiliar field of admi- nistration and examine the correctness of the declaration ot equiva- lence made by the Government. But where it appears to the court that the declaration of equivalence is made without application of mind to the nature and responsibilitjes of the functions and duties. attached to the non-cadre post or extraneous or irrelevant factors are

taken into account in determining the eq~valence or . the nature and responsibilities of the functions and duties of the two posts ate so dis-s·imilar that no reasonable man can possibly say that they are equivalent in status or responsibility or the declaration of equivalence is mala fide or in colourable

exercis~ of power or it is a cloak f.or displacing .a member of the Indian Administrative Ser- vice from a cadre post which he is occupying, the court can and certainly would set at naught the declaration of equivalence and affOrd .protection to the civil servant. The declaratio~ of equivalence mus-t, however, always be there if a member of the Indian Administrative Service is to be appointed to a non-cadre post. The only exception to this rule is to be found in sub-r. (4) and that applies: where the non- cadre post is such that it is not possible to equate it with any cadre post.

Where the Government finds that the equation is not possible, jt can appoint a member of the Indian Administrative Service to a non-cadre post but only for sufficient reasons to be recorded in writing, This again shows that the Government is required to apply its mind and make an objective assessment on the basis· of relevant factors for determining whether the non-cadre post to which a member o:fl the Indian Administrative Service is sought to be appointed can be equated to a cadre post, and if SQ, to what cadre post it can be so equated. This is the plain requirement of r. 9, sub-r. (I) and the que&tion i~ whether the appointment of the petitioner to the non-cadre posts of c

.A :.·:~ .I 1:1 "'E. P. ROY;..PPA V. TAMIL NADU (Bhagwati, J.} I?e_puty Chairman, St_ate Planning Commi~sion and Officer on Spe~ial Duty was in compliance with this tequirement. Turning first to the appointment of the petitioner as Deputy Chair· man, State Planning Commission, it was made by the order dated 7th April, 1971. The Government by this order sanctioned the c,.a- iion ot a temporary .post of Deputy Chairman "in th~ grade of Chief Secretary" and appointed the petitioner to this post, stating that , he would be entitled to the same rank and emoluments as admissible tu the Chief Secretary.

Howsoever favourably to the State Government we may try to read this order, it is not. possible to discern in it any trace of a declaration that the State Government found, on an objec· tivc assessment of the nature and responsibility of the functions· and duties attached to the post of Deputy Chairman, that it was equiva- lent in status and responsibility to that of Chief Secretary. It is one thing to create a post of Deputy Chairman in the grade of Chief Secretary and another to determine, on an objective assessment of the nature and responsibilities of the functions and duties, that the post of Deputy Chairman is equivalent in status and responsibility to that of Chief Secretary.

Here the State Government seems to have pro- .· ceeded on the hypothesis that it can create a non-cadre post in the rank or grade of any cadre post it likes, irrespective of the nature and respon~ibilities of the functions and duties attached to such non~ cadre po~t and that would be sufficient compliance with the require~ ment of r. 9, sub-r. ( 1 )·,

But that hypothesis is plainly incorrect. The State Government cannot artifically create equivalence by saying that a particular non~cadre post, whatever be the nature and respon- sibilities of the functions and duties attached to it, shall be in the rank or grade of any cadre post it likes.

The State Government has to apply its mind and make an objective assessment of the nature and respon$ibilities of the functions and duties and determine which is the cadre post to which such non-cadre post can be regarded as equivalent in status and responsibility and then only it can make a declaration of equivalence.

This exercise does not seem to have been gone through by the State Government when it made the order dated 7th ~ril, 1971 sanctioning the creation of the post of Deputy Chairman and appointing the petitioner to that post.

This becomes abundantly dear if we look at the subsequent orders. As we have already pointed out above, the post of Deputy Chairman first created came to an ·end 6n 13th April, 1972.

Thereafter there was no post of Deputy Chair- man till 6th June, ·1972 when it was cre{lted once again by the order dateJ 6th June, 1972. Strangely enough this order, unlike the earlier order dated 7th April, 1971, did not even mention that the post of Deputy Chairman was in the grade or rank of Chief Secretary. It merely prescribed the pay which shal. attach to the post of Deputy . Chairman. There W!l.S admittedly no declaration in it eq uatin~ the post of Deputy Chairman to that of Chief Secretary. Then we come to the order dated 29th June, 1972.

This order is most eloquent. Jt abolished tl1e post of Deputy Chairman created under the order dated 6th June, 1972 and sanctioned the creation of a fresh post of Deputy Chairman "in the grade of First Member. Board of Revenu<'" Qn a pay of Rs. 3,000/- per nJonth and appointed Raja Ram, First J84

[ 1974 J 2 s.c.R. Member, Board of Revenue to that post. Now it was not the c~e of the respondents that when the post of Deputy Chairman was SaJI.C- tioned again by this order, there was any change in the nature and responsibilities of the functions and duties attached to the post of Deputy Chairman.

These remained the same, namely, what they were when the post of Deputy Chairman was first created under the order dated 7th April, 1971 and then again under the order dated 6th June, 1972. If that be so, how could the .post of Deputy Chairman be declared to be equivalent in status and responsibility to the post of Chief Secretary at one time and to the post of First Member, Board of Revenue at another.

The nature and responsibilities or the func- tions and duties remaining the same, the equivalence, which is a matter of objective assessment, could not vary from time to time. This

dearly shows that the Government did not apply its mind and objec- tively determine the equivalence of the post of Deputy Chairman but gave it a rank or grade according as who was going to be appointed to it.

That is in fact what the State Government bas categorically and in so many terms admitted in paragraphs 25(b) and 28 of itfi affidavit in reply : "Since Thiru M. G. Raja Ram was drawin~ only a salary of Rs. 3,000/- per month there was no option but to down grade the post" :-"With the recent appointment of Thiru M. G. Raja Ram as Deputy Chairman of the Planning Commission the post has been equated to that of the First Member, Board of Revenue". But thi~ is precisely what is impermissible.

The status and responsibility of a non-cadre post for the purpose of determining equivalence cannot depend on who is going to occupy it. It is really the other way round. The equivaleace in status and responsibility determined on an C?hjec- tive assessment of the nature and responsibilities of the functions and duties attached to the post should decide which officer should occup• it. It may be pointed out that, even if the order dated 7th April, 1971 be construed most liberally in favour of the State Government, which, in our opinion, should not be done when there ts a contest between a public servant and the State Government it did not contain a declm·ation of equivalence in regard to ''responsibility". There can,

therefore. be no doubt that the appointment of the petitioner to the post of Deputy Chairman was in contravention of r. 9(1). But ~ cannot grant relief to the petitioner on this ground, because, as ad- mitted by him in his letter dated 7th June, 1972 addressed to the socond respondent, he accepted the appointment without

d~mur as he though that the post of Deputy Chairman "was of the same rank and carried the same emolnments as the post of Chief Secretary'' and actually stated in a chat with newsmen on 7th April. 1971 that ''he was lookiu~ forwaro with confidence to dischar~e the duties of the Deputy Chiarman. Planning Commission. which is considered a cbat· len¢ng task'', and he cannot now be permitted to chaUenJ!e the validity of th~ appoiutmcnt.

So far ·as the question of validity of the appointment to the post of Officer on Special Duty is concerned, ·weJhink that this appoint- ment also suffers from the s~me infirmity. The ord'!r dated

26th June. 1972 first created the DOSt of Officer on Special Duty .. of the rank of Member, Board of Revenue", but on the next day, when 8: c ··r c E. p, ROY).PPA V. TAMIL NADU (Bhagwati, ].)

3SS: it was decided to appoint the petitioner to that post, th~ order dated 26th June 1972 was modified by the order dated 27th June, 1972 and the p~st of Officer on Special Duty \Yas crea+ed ''in the grade of Chief Secretary". These two orders dated 26t~ June, 197_2

~d 27th June, 1972 being of the same na~re and m almost 1denhcal words as the order dated 7th April, _1971, what we have said abO\re- in regard to tne order dated 7th April, 1971 must apply equally in relation to these two orders dated 26th June, 1972 and 27th June, 1972. It is clear for reasons we hav~ already discussed while deal- ing with the ord~r dated 7th April, 1971, that in making these two orders dated 26th June, 1972 and 27th June 1972, the State Gov– ernment proceeded on the wrong assumption that 1~ c~n create a non-cadre post in the rank or grade of any cadre post 1t hkes, regard- less of the nature and responsibilities of the functions and dutie~ ~t­ lached to such non-cadre post. The State Government first created the post of Officer on Special Duty in the rank of Member, Board of Revenue and on the very next day, because it was decided that the petitioner should be appointed to that post, converted it into one in the grade of Chief Secretary. This shows clearly that the State Government did not apply its mind and determine on an objective appraisal of the nature and responsibilities

of the functions and duties attached to the post. of Officer on Special Duty whether it was equivalent in status and responsibility to the post ot Member, Board of Revenue or to the post of Chief Secretary. The nature and responsibilities of the functions and duties attached to the post of Officer on Special Duty could not change in a day and indeed it was not the case of the respondents that they changed at any time. If that be so, how could the post of Officer on Special Duty be declared to be equivalent in status and responsibility to the post of Member, Board of Revenue on one day and to the post of Chief !)ec(c- tary, on th~ very next day. Either it was equivalent to the post of· Member, Board of Revenue or equivalent to the post of Chief Secre- tary. But it could not be equivalent to one post at ,one time and to aAotber post at another time, when the nature and responsibilities _of· the functions and duties attached to it remained the same. This . establishes beyond doubt that, in making the orders dated 26th June, 1972 and 27th June, 1972, the State Government did not apply its mind and objectively determine the equivalen~ of the post of Officer · on Special Duty, but gave it a rank or grade according as who was the officer going to be appointed to it. That is in fact what the State: ·Government clearly and in so many words admitted in paragraph 28 of its affidavit in reply : "-although the post of Officer on Special Duty was first created in the rank of Member Board Qf Reven\le with the appointment of the petitioner to that post, the status of that post was equated to that of the Chief Secretary". ThiS' is also borne out by the fact that when the petitioner went on leave, a Member of · the Board of Revenue was appointed to discharge the functions of the post of Officer on Special Duty and that post was once again brou3ht down to the rank of Member, Board of Revenue. The order dated · 27th June, l 972 in any event did not contain any declaration as to · equival~ce in "responsibility". There was thus no compliance with the requ1rement of r. 9, sub-r. ( 1) and the appointment of the peti- [ 1974] 2 s.c.R.

ti~mer to th~ po~t of Officer on Special Duty was accordingly be liable to be held mvahd for contraventiOn of that sub-rule. But we cannot in tnis petitiOn under Art. 32 gtve wiet to tne petttioner by sll'Lkln& d?wn. his appointment to the post of ~fficer on .special Duty, as mere violation of r. 9, sub-r. (1) does not mvolve mfringement of any fundamental right.

We, however, hope that the State Government wiU. not drive the petitioner to take appropriate proceedings for ob· taining the nece&sary relief. Th\: lust two grounds of challenge may be ta~en up together for considcnnicm. Though we have formulated the th1rd ground of clwl· lenge as a di~tinct and separate ground, it is really in sub~tance and ,effect merely an aspect oi the second ground based on violation oi Arts. 14 and 16. A~. 16 embodies the fundamental guarantee that .there shall be equality of opportunity for all citizens in matters relat· ing to employment C!I' appointment to any office under the State. Though enacted as a distinct and independent fundamental right be· cau.se ?f its ~eat importance as a principle ensurirrg equality of oppor· tumty m pubJtc e~pJ?yment. which i.s so vi~l to the building up of the new classless egahtanan soctety envtsaged m the Constitution Art. 16 . is -;niy ~n instance of the appJ.ication elf .the concept of equ~ity en-

-~hrmed mArt. 14. In other words, Art. 14 is the genus while Art. 16 ~s a spectes, ~rt. 16. giv~s effect to the doctrine oi equality in all matters re~atmg to public employment The basic principle

which, ther_efore,_mf_o~s ·?oth Arts. 14 ~d 16 .is equality and inhibition agamst dtscnmmauon. Now, what JS the content and reach of .this great equalising principle? It is a founding faith, to usc the words or l:i~se, ~.,-"a way of life", and it must not be subjected to a nar.row pedanttc or leXIcographic approach. We

cannot oountenance any :attempt to truncate its all-embracing scope and meaning, for to . do so wuuld be to vic!ate its activist magnitude. Equality is a dynamic concept with many a~pects and dimensions and it cannot be "cribbed. cabioed and confined" within traditional and doctrinaire limits. From a po's\tivistic point of view, equality is

antithetic to arbitrariness. In fa(;t. equali')' and arbitrariness are sworn enemies; one belongs to the rule ctf law· in a republic while the other, -o the whim and caprk:e of an absolute monarch. Where an act is arbitrary it is implicit in it that it is unequ.ll both according to political logic and constitutional iaw and is therefore violative of Art. 14, and if it affects any matter relat- i.ng·to J.Ublic employment, it is also violative of Art. 1.6. Arts. 14 and .lb strike at arbitrariness in State action and ensure fatmess and equa· lity elf treatment. They require that S~te .action ~us_t be _based or. valent relevant principles applicable alike to ~1 similarly stt?ate . and it must not be guided by any extraneous or rrrelevant _con~1deratron~ bectause that would be denial of equality. ";'here . the ~pcratiVe reason for State action, as distinguished from mottve mducmg

fr~m the ·antechamber of -the mind, is not le&i;tUp.ate and. relev~nt bu~ 1s extra· . neous and cl\ltside the area of penmss1ble constderat10ns, It would .amount to mala fide exercise of power and that is hit by Arts. 14 and . t6. Ma"' fide e~ercise of power and .arbitr.ariness are different lethal .Yadiations emanating from the same VlCe : m fact the latter compre- :-hends the former. Both are inhibited by Arts. 14 and 16. c

c 'E E, p, ROYAPPA V, TAMIL NADU (Bhagwati, ],) It is aJso necessary to point out that the ambit and reach of Arts. 14 and 16 are not limited to cases where the public servant affected has a right to .a post. Even if a p~blic servant is in au officiating posi- tion, he can complain of violation of Arts. 14 and)6 if he has been arbitrarily or unfairly treated or subjected to mala fide exercise of' .poWer by the State maqune. It is, therefore, no answer tc; the charg~ of infringetMnt of Arts. 14 and 16 to ~y that the petitioner had no. right to the ~t of. Chief Secretary but was merely officiathig in that post. 'Ibat.IDlght have some relevance to Art. 311 but not to Arts. 14. and 16. We must, therefore, prcpeed to consider whether the transfer of the petitioner first to the post of Deputy Chairman a.qd then to the· post of Officer on Special Duty was arbitrary, hostile and is rna' a fide exercise of power. What was the operative reason for such tran,:;fer;. was it the exigencies of public adnnnistration cr extra administrative considerations having no relevance to the question of transfer 1 Was the transfer to the post of Deputy Chairman or Officer on Special Duty so irratiQn.al or unjust that it could not have been made by any reasc.n- . able;administration except for colaterial reasons? These are the ques~. tions ·which call for our ~nsideration.

Now, two important considerations must weigh with us in deter- mining our approach to these questions. First, the post of Chief· Secretary is a highly sensitive post. It is a post of great confidence-a lynchpin in the administration and smooth functioning of the administration requires that there should be complete rapport and·

undC"rstanding between the Chief Secretary, and the Chief Minister .. The Chief Minister as the head of the Government is m ultitnate· charge of the administration and it is. he who is politically answerable to the . people for the achievements and failnres of the Government. lf, therefore, for any valid reason the Chief · Secretary forfeits the. confidence of the Chief Minister, the Chief Minister ma:y legitimately, in the larger interests of administration, shift the Chief Secretary to· another ·post, provided of-course thtlt does· not i11volve violation of a~y of his kgal or constituflional rights. There can be no question in· S\lCb a case as to who is . right and who is wrong. The displacement ot · the Chief Secretary from his post in such a case would not. be arbitrary .and it would not attract the inhibition of Arts. 14 and 16. It may,. however, be pointed out that such an a9tion would not, we ·think:, ordinarily be taken except for the most compelling reasons, because, · if resorted to without proper jtistification, it would tend to affect •he ·. '{>()lilical neutrality of the public l)ervice and lead to demoralisation· and frustration amongst the public servants.

Secondly, with the vast multitudinous activities in which a moderR· State is engaged, there are bound to ~ some posts which require fOr- adequate discharge of their functions, high (Iegree of intelleet · and · · specialised experience. It' is ·atw11ys a difficult problem for the Govern~ men~ to. 1jnd · suitable- officers for such speeialised posts. There il.re not · ordi11arilv · many offioers who answer· the requirements of such s"""'a-· 11' · . Ji$ed . po~ts and· the cb.oi~ with the Government is very limit.ed'Md tbis choice becomes all the more diffioult, because some of these posts, though · impertant and having onerous responsibilities, do not carry- SUPREME COURT RgPOR.TS

[ 197~] 2 S.C.'I· wide executive powers and officers may not, therefore, generally be witling to be transfeqed to those posts. Tbe Government has in the circumstances to make the best possible choice it can, keeping in view the larger interests of the administration. When, in exercise of this choice, the Government transfers an officer from one post to another, the officer may feel unhappy because the new posts does not give him the same amplitude of powers which he had while holding the old. pOilt. But that does not make the transfer arbitrary. So long a:>

the transfer is made on account of the exigencies of administration and· is not from a higher post to a lower post with discriminatory preference of a junior for the higher post, it would be valid and not ope11 to attack under Arts. 14 and 16.

Now, here the post of Chief Secretary was adinittedly a selection poit and after careful examination of the merits of the senior moiit ·c1even officers of the Tamil Nadu Cadre of the Indian Administrative Service, tho second respondent selected the petitioner for the post of Otief Secretary. The petitioner worked as Chief Secretary from 14th November, 1969 up to 6th April, 1911 and evidently during this period he acquitted himself creditably. It was not the case of either of the respondents that the petitioner was not found equal to the task -or that his work was not satisfactory. In fact the affidavit in reply filed on behalf of the first respondent clearly indicates that the peti- tioner discharged the duties of his office efficiently and to the satis- faction of every one concerned. Yet the petitioner was transferred first to the post of Deputy Chairman and then to the postof Offieer ·on Special Duty and in his place Sabanayagam, who was admittddty junior to him, was not only promoted but also confirmed. The result of confirmation of Sabanayagam as Chief Secretary was that the peti- tiol\er, though senior and proved competent, was

permanently ex- cluded from the post of Chief Secretary. This clearly shows, contended the petitioner, that his trarisfer first to the post of Deputy Chairman and then to the post of Officer on Special Duty was not on account of administrative reasons but solely to displace him from the key post of Chief Secretary. That perhaps might have been legally and consti- tutionally unobjectionable, if the post of Deputy Chairman and Officer on Special Duty . were of the same status and responsibility as the post of Chief Secretary, but the argument of the petitioner was that neither of these two posts could be regarded as of equal statw and· responsibility as. the post of Chief Secretary because the post of Ch:ef Secretary is always a unique and unrivalled post in the State administration. The transfer of the petitioner from the post of Chief S.:cretary first to the post of Deputy Chairman and then to the post of Officer on Special Duty coupled with the promotion and confirmation of Sabanayagam in the post of Chief Secretary was, therefore, clearly arbitrary and violative of Arts. 14 and 16. This contention, plausible though it may seem, cannot be accepted by us, because there is no adequate material placed before us to sustain it. Th.e premi~·~ on which this contention is founded is that the posts of Deputy Chairman and Offl,cer on Special Duty were not of the same status and respollSibility as the post of Chief Secretary, but we cannot say on the material on 1·ecord that the validity of the premise has been established by the peli~ioner. So far as the post of Deputy Chairman is concerned, the c

f) E. P. :A.O~PPA V. TAMlL NADU (Bhagwati, /.) ~89 petitioner himself accepted that post as being of the same status and reiponsibility as the post of Chief Secretary and did ·not raise any objection against it and we need not, therefore, say anything more about it. The only question is as to the post of Officer otl Special Duty. We think that this post ~as not been satisfactorily established by the petitioner to be inferior in status and responsibility to the post.of Chief Secretary. This of~urse does not mean, and we are not pre- pared to go as far as the learned Chief Justice in asserting positively that that post was equal in status an<:J. responsibility to the post of Chief Secretary. The fact that sales tax accounts for a very large · 'egment of the revenues of the State and it runs into about 120 crores of x:upees does not necessarily make the post of Officer ~n

Special Duty equal in status and responsibility to that of the Olief Secretary. What has to. be seen for equivalence is the status and the nature and responsibility of the duties attached to the two posts. Merely giving the salary of one post to the other does not make for equivalence. We are, therefore, not prepared to accept the th.esis that the post of Officer on Special duty was equal in status and responsi- bility to the post of Chief.Secretary as claimed by the respondents. We entertain serious doubts. about it. But equally it is not possible for us to hold it established on the material on record that this post was inferior in status and ·responsibility to the post of

Chi~f Secretary, though prima facie it does appear to be so. We cannot, therefore, say that the petitioner was arbitrarily or unfairly treated or that equality was denied to him when he was transferred from the post of Chief Secretary and in his place Sabanayagam, his junior, was promoted and confirmed.

The challenge base.rl on Arts. 14 and 16 must therefore fail. We may now turn to the ground of challenge based on mala fide exercise of power. The petitioner set out in the petition various incidents in the course of administration where he crossed the path of the second respondent and incurred his wrath by inconn~nient and uncompromising acts and notings and co_ntended that the second. res- pondent, therefore, nursed hostility and malus animus against the petitioner and it was for this reason and not on account of exigencies of administration that the petitioner was transferred from the post of Chief Secretary. The incidents referred to by the petitioner, if true. constituted gross acts of mal-administration and the charge levelled

against the second respondent was that because the petitioner in the course of his duties obstructed and thwarted the second r~spondent in the'e acts of mal-administration, that the second respondent was an-

noyed with him and it was with a view to putting him out of the way and at the same time deflating him that the second respondent trans- ferred him from the post of Chief Secretary. The transfer of the pcti- tion.er was, therefore, in mala fide exercise of power and accordingly invalid .

. Now, when we examine this contention·we must bear in mind two important ·considerations. In th~ first place, we must make it clear, deij)ite a, very strenuous argunient to the contrary, that we are not

called upon to investigate into acts of maladministration by the politi- cal Government headed by the second respondent. It is not within O'\! SUPREME COURT ltEPORTS [ 1974] 2 s.c.R.

province to embark on a far ftung inquiry into acts of commission and omission charged against the second respondent in the administra- tion of the affairs of Tamil Nadu. That is not the scope of the inquiry before us and we must ~ecline to enter upon any such inquiry. It is one thing to say that the second respondent was guilty of misrule and another to say t_h.at he had malus eJ;imus against the petitioner which was the operative cause of the displacement of the petitioner from the ·post of Chief Secretary. We are concerned only with the lattedimited issue, not with the former popular issue. We cannot permit the peti- tioner to side track the issue and escape the burden of establishing hostility and malus enimus on the part of the second respondent by diverting our attention to incidents of suspicious exercise of executive power. That would be nothing short of drawing a red herring across the trail. The only question before us is whether the action taken by the respondents includes any component of mala fides whether hosti- lity and malus enimus against the petitioner were the operational cause of the transfer of the petitioner from the post of Chief Secretary. Secondly, we mm:t not also overlook that the burden of elitablish- ing mala fides in very heavy on the person who alleges it. The allega- tions of mala fides are often more easily made than proved, anc! the very seriousness of such allegations demands proof of a high order of credibility. Here the petitioner, who was himself once the Chief Secretary, has flung a series of charges of oblique conduct against the Chief Minister. That is in itself a rather extra-ordinary and unusual occ.urrence and if these charges are true, th~y are bound to shake the confidence of the people in the political custodians of power in the State, and therefore, the anxiety of the Court should be all the greater to insist on a high degree of proof. In this context it may be noted that top administrators are often requjred to do acts which affect others adversely but which are necessary in the execution of their duties. These acts may land themselves to misconstruction and suspicion as to the bona fide of their author when the full facts . and surroul\ding circumstances are not known. The Court would, therefor~. be slow to draw dubious inferances from incomplete facts placed before it by. a party, particularly when the imputations are grave and they are made against the holder of an office which has a high responsibility in the administration. Such is the judicial perspective in evaluating charges of unworthy conduct against ministers and other high authorities, not because of any special status which they are supposed to enjoy, nor because they are highly placed in social life or administrative set up- th~se conSiderations are wholly irrelevant in judicial approach-but because otherwise, functioning effectively would become difficult in ·a democracy. It is from this stand point that we must assess that merits or the.allegations of mala fides made by the petitioner against the second respondent.

Now extensive arguments were addressed before us by counsel on both sides and we were taken throug~ a mass ·of documents, papers and official notings on this part of the case but we are afraid it is not ll possible for us to say that the onus of establishing mala {Uks asainst the second respondent, heavy as it is, has been discharged by the peti- .tioner. The allegations of mala fides have been dealt with fully in the c

li E. P. ROYAPPA V· TAMIL NADU (Bhagwati, J.) judgment of the learned Chief Justice and we do not think it will serve any useful purpose for us to discuss the merits of those alfega- tions once again in this judgment, as we are substantially in agreement with what the learned Chief Justice 'has said. But we cannot help men~ tioning that there are certain disturbing · features

which cause us anxiety. We may take by way of example the imputation in regard to ' the Coom River Project. It seems that in or about the beginning of February 1970 the second respondent asked the Director of Vigilance to look into the affairs relating to Coom Improvement Project as he apprehended that there were certain mal·practices in the execution of that scheme. Whether this was done by the second respondent on his own initiative or at the instance of the petitioner is immaterial and we need not go into that controversy. The Director of Vigilance, as his · subsequent letter dated 25th February, 1970 shows, informed the

second respondent that without a discreet inquiry it . would oot be possible to allay or confirm the apprehensions with ·· any degree ci credibility since the head ~ the concerned engineering

department ~ was personally involved in the execution of the scheme and he accord- ingly by that letter pointed out to the petitioner that he needed autho- risation to embark on the inquiry and Government order in that be- half should therefore be obtained and communicated to him. The peti~ tioner made an endorsement on this letter on the very next day with a remark that the Public (Secret/Confidential) Department should deal with it immediately. The Public

(Secret/Confidential) Depart- ment prepared a note at the foot of the letter and submitted it for cir- culation to the Minister for Works and the second respondent for orders whether the Director of Vigilance should be requested to mako a discreet inquiry and send his report. The endorsement made below the note shows that it was submitted for circulation on 3n1 March, 1970. It appears, however, that this note remained unattended until the middle of September 1970. On 12th September, 1970 the Minister for Works made an endorsement that the Director of Vigilance may make a discreet inquiry and this endorsement was. approved by tho second respondent on 20th September, 1970. The file containingj the note together with the endorsements of the Minister for works and the second respondent was thereafter placed before the petitioner along with a draft of the memorandum to be addressed by the petitioner to the Director of Vigilance. It is common ground that no memorariduni in terms of this draft was issued by the petitioner to the Director of Vigilance. The case of the petitioner was that he did not do so because the second respondent subsequently ordered that no inquiry need be made in this matter. This position was disputed by the second res- '' pondent who stated that to the best of his recollection he did not make any such order cancelling the inquiry. That is a matter of con~ trcversy between the parties and as pointed out above it does rtot fall within our province to investigate it. But the fact remains, and that cannot be disputed, that no inquiry thereafter took place in the affairs of the Coom Improvement Scheme. It is a little interesting to note that Sabanayagam addressed a letter dated 31st July, 1971 to the peti- , tioner stating that though the Personal Assistatlt to the Chief Secretary ' had been reminded to send back the file relating to this matter, it had I not been received and the petitioner should arrange to send it back, , 13-L522 SCI/74

i ( 1974] 2 S.C.R. if it was with him. The petitioner immediately replied to this letter on 8th August, 1971 pointing out that he distinctly. remembered that the second respondent had subsequently ordered that no inquiry n~ej be made in this matter and the file was not with him. It is significant that though the petitioner stated categorically that the second respondent had subsequently ordered that no inquiry need be made, Sabaaayagam did not write back challenging- the correctness of _this statement." The file pertaining to this matter was all throughout in the possession of the Government and even after the petitioner pointed out that it was not with him, curiously enough, it could not be traced until the filing of the petition. In fact, the absence of the file could not have stood in the way of ordering an inquiry. These and a few other circumstan.ces do ~reate suspicion but suspicion cannot take the place of proof and, as pointed out above, proof needed here is high degree of proof. We can- not say that evidence generating judicial certitude in up-holding the plea of mala fides has been placed before us in the present cas~. We must, therefore, reject this contention of the petitioner as well. We accordingly dismiss the petition with no order as to costs. K.B.N.

Petition dismissed. – ~ __ ..;- n c l