GOVT. OF A.P. AND ORS. v. K. BRAHMANANDAM AND ORS.

"" ~ ' [2008] 7 S.C.R. 140 A GOVT. OF A.P. AND ORS. _v_ K. BRAHMANANDAM AND ORS. (Civil Appeal No.3043 of 2008) APRIL 29, 2008 B **[S.B. SINHA AND LOKESHWAR SINGH PANTA, JJ.]** _Service Law:_ _Andhra Pradesh Educational Institutions (Establishment,_ c _Recognition, Administration and Control of Schools Under Private Managements) Rules, 1993_ - _Appointment of_ - _Respondent-school teachers Without following procedural aspects laid down in the Rules_ - _Services of Respondents_ - _not approved Nor were they paid any salary- They filed writ_ D _petition_ - _High Court grnnted relief_ - _Liability to bear financi?I burden for payment of wages to Respondents_ - _On State or on the concerned school_ - _Contention of Appellant-State that it has no liability to pay salary of Respondents since their_ - _services had not been approved Held: Appointments made_ **E** _[in ][violation ][of ][the mandatory provisions ][of ]_[a ] _[statute would be ] illegal and, thus, void_ -· _//legality cannot be regularized, only an irregularity can be_ - _Thus, question of regularizing the services of RespondEmts does not arise -Respondents, however, entitled to salary from school authorities_ as _they[Salary ]_ F _[worked even ][if ][no valid contract came into being ]_[-] _amount payable in terms of_ s. 70 _of the Contract Act_ - _Doctrine of quasi-contract cannot be applied in_ a _situation of this nature_ as _against the State_ - _Andhra Pradesh Education Act, 1982_ - _Constitution of India, 1950_ - _Arts.14 and 16_ - _Doctrines_ - _[Contract Act, 1872 ]_[-][s. ][70. ] G _[Doctrine ][of ][quasi-contract ]_[-] I H **Respondents were appointed as school teachers. Allegedly, provisions of the recruitment rules laid down by G.O.Ms No.1 dated 1-1-1994 was not followed in the recruitment process. The said rules i.e. the Andhra** 140 ,\, 141 ' B A GOVT. OF A.P. AND ORS. _v._ K. BRAHMANANDAM AND ORS. \ .. _J_ "' Pradesh Educational Institutions (Establishment, Recognition, Administration and Control Of Schools Under Private Managements) Rules, 1993 were framed by the State in exercise of the power conferred upon it under s.99 read with ss. 20, 21, 79, 80 and 83 of the Andhra Pradesh Education Act, 1982. Respondents filed writ petitions before the High Court contending that though they were appointed through due selection process and had put up sufficient length of service, neither their appointments were approved nor they have been paid any salary till date. The High Court _inter alia_ held that only because the procedural aspects had not been followed as per the said GOMs No. 1 dated 1-1-1994, the same would not bar grant of relief in favour of Respondents since they were working for several years and furthermore possessed minimum qualification . The question involved in the present appeal is whether the State or the school concerned is liable to bear the financial burden for payment of wages to the Respondents. The contention of Appellant-State is that it has no liability to pay the salary of Respondents since their services had not been approved. ## Partly allowing the appeal, the Court •-' ' ~ - ~ HELD: 1. The liability of the State to pay salary to a[F ] teacher appointed in the recognized schools would arise provided the provisions of the statutory rules are complied with, subject to just exception. The right to claim salary must arise under a contract or under a statute. If such a right arises under a contract between the appointee and[G ] the institution, only the latter would be liable therefor. Its right in certain situation to claim reimbursement of such salary from the State would only arise in terms of the law as was prevailing at the relevant time. If the State in terms of the statute is not liable to pay the salary to the teachers, H 142 SUPREME COURT Fi:EPORTS [2008) 7 S.C.R B A no legal right accrues in favour of those who had been appointed in violation of mandatory provisions of the statute or statutory rules. [Para 11] [146-G; 147-A, B] _Ashok Kumar Yadav v. State of Haryana_ AIR 1987 SC 454 - referred to. 2. The equality clause contained in Articles 14 and 16 of the Constitution must b1~ scrupulously followed. The Court ordinarily would not issue a writ of or in the nature of mandamus for regularization of the service of the c employee which would be violative of the constitutional scheme. [Para 12J [147-8, CJ 3.1. Appointments made in violation of the mandatory provisions of a statute would be illegal and, thus, void. Illegality cannot be ratified. Illegality cannot be regularized, D only an irregularity can be. [Para 13J [147-C, D] 3.2. The question of regularizing the services of the respondents does not arise. Respondents, however, are entitled to salary from the school authorities as they have worked even if no valid contract had come into being. The E salary amount would be payable in terms of Section 70 of the Indian Contract Act. The principles of quasi-contract, however, must apply keeping in view the relationship between the parties. The doctrine of quasi-contract cannot be applied in a situation of this nature as against the State. F [Para 18J [151-A, BJ r ' 3.2. It would, however, be open to the school authorities to take such action, as it may deem fit and proper, in the light of the decision of this Court in _Umadevi_ G _(3)._ * [Para 19] [151-C] _*Secretary, State of Karnataka and Others v. Umadevi (3) and Others_ (2006) 4 SCC 1- followed. _Mineral Exploration Corporation Employees' Union v._ H _Mineral Exploration Corporation. Ltd and Anr._ (2006) 6 SCC GOVT. OF A.P. AND ORS. _v._ K. BRAHMANANDAM AND 143 ORS. [S.B. SINHA, J.] ~ ' .... /" 310; _Municipal Corporation, Jabalpur v._ Om _Prakash Dubey_ A (2007) 1 SCC 373; _Punjab Water Supply_ & _Sewerage Board v Ranjodh Singh and_ Ors. _etc._ (2007) 2 SCC 491; _Punjab State Warehousing Corp., Chandigarh v. Manmohan Singh and Anr._ (2007) 3 SCALE 401 and _Post Master General, Kolk&ta_ & Ors. _v. Tutu Oas (Dutta)_ (2007) 6 SCALE 453 - B rnferred to. CIVILAPPELLATE JURISDICTION: Civil Appeal No. 3043 of 2008. From the final Judgment and Order dated 25.8.2005 of c the High Court of Judicature, Andhra Pradesh at Hyderabad in WA No. 1321 of 2001. R. Sundraravardhan, D. Bharathi Reddy, Altaf Fatima and Debojit Barkakoti for the Appellants. G. Ramakrishna Prasad, Suyodhan Byrapaneni, Siddarth Patnaik and G. Arun for the Respondents. D The Judgment of the Court was delivered by S.B. SINHA, J. 1. Leave granted. 2. Whether the State or the Educational Institution is liable to bear the financial burden for payment of wages to the concerned respondents herein is the question involved in this appeal which arises out of a judgment and order dated 25.08.2005 passed by the High Court of Andhra Pradesh in Writ Appeal No. 1321 of 2001. E F 3. Respondents, seven in number, were appointed as Secondary Grade Teachers in Church of South India, UP Elementary School. Allegedly, the provisions of the rules had not been followed in recruiting the teachers. Indisputably, such[G ] rules of recruitment had been laid down by G.0.Ms. No. 1 dated 1.01.1994. The said rules were framed by the State in exercise of its power conferred upon it under Section 99 read with Sections 20, 21, 79, 80 and 83 oftheAndhra Pradesh Education Act, 1982 known as the Andhra Pradesh Educational Institutions H SUPREME COURT REPORTS [2008) 7 S.C.R. 144 A (Establishment, Recognition, Administration and Control Of Schools Under Private Managements) Rules, 1993 (for short "the Rules"). 4. The Rules categorized several schools; Upper Primary Schools being one of them. The Rules defines the "Educational 8 Agency" in Rule 2(1){b) to mean "the Society/Trust/ Association including Endowment, Board/ Wakf Board and Christian Mission (Church/ Diocese or Congregation) and the like, sponsoring/ managing/ running the schools". "Minority Educational Institution" has been defined in Rule 2(f) of the Rules C to mean "any educational agency of which at least 213rd members belong to a religious _I_ linguistic minority". 5. Rule 7 of the Rules provides for scrutiny and grant of permission on an application filed therefor by the institution in D question. Rule 9 provides for the manner in which recognition can be granted. Rule 10 provides for the conditions for grant of permission and recognition. Rule 12 provides for the appointment of staff. Sub·-Rule (3) of Rule 12 mandates that advertisement for recruitment shall be made at least in two newspapers having large circulation. The Employment E Exchange is also required to be notified in regard to the vacancies. A Staff Selection Committee constituted for undertaking the recruitment process is to consist of a nominee of the District Educational Officer not below the rank of Deputy Educational Officer. Sub--Rule (8) of Rule 12 provides that all F appointments should be subject to the approval of the competent authority. 6. It is stated that the management of the institution, before the recruitment of the respondents, neither obtained any prior G permission from the District Educational Officer nor made advertisement in two newspapers nor notified the vacancies to the Employment Exchange. Even no order of approval as . regards the said appointments was obtained from the District Education Officer. H The State contends that the selection process had been 145 GOVT. OF A.P. AND ORS. _v._ K. BRAHMANANDAM AND ORS. [S.S. SINHA, J.] > ·~ ~ A "· ~ " undergone hurriedly, which created a lot of suspicion. Respondents, however, contend that they were appointed as Secondary Grade Teachers at different places through due selection process and they had been performing their duties to the utmost satisfaction of the authorities of the concerned schools. Indisputably, their salaries had not been paid. They[B ] made representations therefor. Their representations were rejected by the District Education Officer by an order dated 10.12.1999. • 7. Respondents thereafter filed writ petitions before the c High Court. The State filed a counter affidavit wherein it was inter alia contended that the writ petitioners - respondents had been appointed through side door(s) by the then Correspondent Rev. Prasad Rao in collusion with the teachers concerned as also the then Education Officer. D A learned Single Judge of the High Court relying on the principles laid down by this Court in _Ashok Kumar Yadav v. State of Haryana_ [AIR 1987 SC 454] as also on the premise that the said respondents have been working for several years and as furthermore they possessed minimum qualification held that only because the procedural aspects had not been followed as per the said GOMs No. 1 dated 1.01.1994 and other directions from time to time, the same would not be a bar for grant of relief in their favour, stating: E F "In my considered view, the same principle will also apply to the facts of this case. Admittedly, the petitioners are continuing in service for more than 8 years and it would be inequitable to disturb them at this distance of time." 8. On an intra court appeal having been filed, a Division G Bench of the said Court dismissed the appeal, stating : .~ "The main grievance of the respondents is that though they were appointed as Secondary Grade Teachers, through due selection process, neither their appointments were approved nor they were paid any salary till date. In H SUPREME COURT F~EPORTS [2008] 7 S.C.R. 146 A c earlier round of litigation, in W.P. No. 9616 of 1995, this court directed the authorities concerned to consider the proposals sent by the Management on 1.4.1996 and take appropriate decision. In pursuance thereof, the fourth ·appellant passed orders on 10.12.1999 rejecting the cases for approval. The case of the respondents is that they have put up sufficient length of service. The learned Single Judge placed reliance on the Judgment cited supra and held that it would bE! unjust to disturb the respondents after eight years of service and accordingly set aside the impugned order passed by the fourth appellant. In the above background of the case, we are of the opinion that the learned Single Judge has arrived at a just conclusion and the same, in our considered opinion, deserves no interference." B D 9. Mr. R. Sundraravardhan, learned senior counsel appearing on behalf of the appellants, would submit that the State has no liability to pay the salary of the concerned teachers keeping in view the fact that their services had not been approved. The learned counsel would further contend that it is E not even a case where paragraph 53 of the Constitution Bench decision of this Court in _Secretary, State of Karnataka and Others v Umadevi (3) and Others_ [(2006) 4 SCC 1] would apply. ' 10 Mr. G. Ramakrishna Prasad, learned counsel appearing on behalf of the respondents, on the other hand, F would contend that in view of passage of time and particularly in view of the fact that the respondents had been continuing to work for a long time, this Court should not interfere with the impugned judgment. G H 11. The liability of the State to pay salary to a teacher appointed in the recogniz:ed schools would arise provided the provisions of the statutory rules are complied with, subject to just exception. The right to claim salary must arise under a contract or under a statute. If such a right arises under a contract between the appointee and the institution, only the latter would 147 GOVT. OF A.P. AND ORS. _v._ K. BRAHMANANDAM AND ORS. [S.B. SINHA, J.] _-l_ • ' -~ be liable therefor. Its right in certain situation to claim A reimbursement of such salary from the State would only arise in terms of the law as was prevailing at the relevant time. If the State in terms of the statute is not liable to pay the salary to the teachers, no legal right accrues in favour of those who had been appointed in violation of mandatory provisions of the statute or B statutory rules. 12. The equality clause contained in Articles 14 and 16 of the Constitution of India, it is trite, must be scrupulously followed. The court ordinarily would not issue a writ of or in the nature of mandamus for regularization of the service of the employee[c ] which would be violative of the constitutional scheme. > 13. Appointments made in violation of the mandatory provisions of a statute would be illegal and, thus, void. Illegality cannot be ratified. Illegality cannot be regularized, only an irregularity can be. D The said legal principle has been enunciated by a Constitution Bench of this Court in _Umadevi (3)_ (supra), para 53 whereof reads as under: i ~ E "53. One aspect needs to be clarified. There may be cases where irregular appointments (not illegal appointments) as explained in S. _V Narayanappa, R.N. Nanjundappa_ and _B. N. Nagarajan_ and referred to in para 15 above, of duly qualified persons in duly sanctioned vacant posts F might have been made and the employees have continued to work for ten years or more but without the intervention of orders of the courts or of tribunals. The question of regularisation of the services of such employees may have to be considered on merits in the light of the principles settled by this Court in the cases abovereferred to and in G the light of this judgment. In that context, the Union of India, the State Governments and their instrumentalities should take steps to regularise as a one-time measure, the services of such _irregularly_ appointed, _who have worked for ten years or more in duly sanctioned_ posts _but not_ H F G 148 SUPREME COURT REPORTS [2008) 7 S.C.R. _l_ • ). G A B c _under cover of orders of_ th1~ _courts or of tribunals and should further ensure that regular recruitments are undertaken to fill those vacant sanctioned posts that require to be filled up, in cases where temporary employees or daily wagers are being now employed._ The process must be set in motion within six months from this date. We also clarify that regularisation, if any already made, but not sub judice, need not be reopened based on this judgment, but there shoulld be no further bypassing of the constitutional requirement and regularising or making permanent, those not duly appointed as per the constitutional scheme." [Emphasis supplied] 14. We are not unmindful ofthefactthatthe said paragraph D[has ][been ][interpreted differently ][by ][different ][Bench~s. ][Some ] benches have remitted the matter back to the tribunal/authorities for consideration of the matter afresh in the light of the said observations, e.g., in _Mineral Exploration Corporation Employees' Union v. Mineral Exploration Corporation. Ltd. and Anr._ [(2006) 6 SCC 31 OJ, it was directed : E "We, therefore, direct the Tribunal to decide the claim of the workmen of the Union strictly in accordance with and in compliance with all the directions given in the judgment by the Constitution Bench in _Secy., State of Karnataka_ v. _Umadevi (3)_ and in particular, paras 53 and 12 relied on by the learned Senior Counsel appearing for the Union. The Tribunal is directed to dispose of the matter afresh within 9 months from the date of receipt of this judgment without being influenced by any of the observations made by us in this judgment. Both the parties are at liberty to submit and furnish the details in regard to the names of the workmen, nature of the work, pay scales and the wages drawn by them from time to time and the transfers of the workmen made from time to time, from place to place and otlier necessary and requisite details. The above details F H ' 149 GOVT. OF A.P. AND ORS. _v._ K. BRAHMANANDAM AND ORS. [S.B. SINHA, J.] . • ' _.•{_ shall be submitted within two months from the date of the A receipt of this judgment before the Tribunal." 15. On the other hand, in some of the cases, the said paragraph, for example, in the decision of this Court in _Municipal Corporation, Jabalpur v. Om Prakash Dubey_ ((2007) 1 SCC 373] had been applied to the following effect: B ''The question which, thus, arises for consideration, would be : Is there any distinction between 'irregular appointment' and 'illegal appointment'? The distinction between the two terms is apparent. In the event the appointment is made c in total disregard of the constitutional scheme as also the recruitment rules framed by the employer, which is State within the meaning of Article 12 of the Constitution of India, the recruitment would be an illegal one; whereas there may be cases where, although, substantial compliance of D the constitutional scheme as also the rules have been made, the appointment may be irregular in the sense that some provisions of the rules might not have been strictly adhered to." ~ _I_ [See also _Punjab Water Supply_ & _Sewerage Board v. Ranjodh Singh and Others etc._ (2007) 2 SCC 491, _Punjab State Warehousing Corp., Chandigarh v. Manmohan Singh and Anr.,_ 2007 (3) SCALE 401 and _Post Master General, Kolkata_ & _Others v. Tutu_ Das _(Dutta)_ 2007 (6) SCALE 453] E F 16. In the light of the decision of this Court in _Umadevi (3)_ (supra), para 53 thereof would be applicable subject to the condition that the matter had not been pending before any court or tribunal. Indisputably, the litigation between the parties was pending since January, 2000. The institution's application for approval of the said appointments had been rejected. Therefore, G para 53 of _Umadevi (3)_ (supra) has no application. 17. Even in relation to application of the concept of equal pay for equal work, the Constitution Bench held: "44. The concept of "equal pay for equal work" is different H SUPREME COURT l~EPORTS 150 [2008] 7 S.C.R. _f_ ' ' >· A B c D E F G H from the concept of conferring permanency on those who have been appointed on ad hoc basis, temporary basis, or based on no process of selection as envisaged by the rules. This Court has in various decisions applied the principle of equal pay for equal work and has laid down the parameters for the application of that principle. The decisions are rested on the concept of equality enshrined in our Constitution in the light of the directive principles in that behalf. But the acceptance of that principle cannot lead to a position whme the court could direct that ·appointments made without following the due procedure established by law, be deemed permanent or issue directions to treat them as permanent. Doing so, would be negation of the principle of equality of opportunity. The power to make an order as is necessary for doing complete justice in any cause or matter pending before this Court, would not normally be used for giving the go-by to the procedure established by law in the matter of public employment. Take the situation arising in the cases before us from the State of Karnataka. Therein, after _Dharwad decision_ the Government had issued repeated directions and mandatory orders that no temporary or ad hoc employment or engagement be given. Some of the authorities and departm13nts had ignored those directions or defied those directions and had continued to give employment, specifically interdicted by the orders issued by the executive. Some~ of the appointing officers have even been punished for their defiance. It would not be just or proper to pass an order in exercise of jurisdiction under Article 226 or 32 of the Constitution or in exercise of power under Article 142 of the Constitution permitting those persons engaged, to be absorbed or to be made permanent, based on their appointments or engagements. Complete justice would be justice according to law and though it would be open to this Court to mould the relief, this Court would not grant a relief which would amount to perpetuating an illegality." ' ~ GOVT. OF A.P. AND ORS. _v._ K. BRAHMANANDAM AND ORS. [S.S. SINHA, J.] 151 18. In view of the decision in _Umadevi (3)_ (supra), we are A of the opinion that the question of regularizing the services of the respondents does not arise. Respondents - writ petitioners (teachers), however, are entitled to salary from the school authorities as they have worked even if no valid contract had come into being. The salary amount would be payable in terms s of Section 70 of the Indian Contract Act. The principles of quasicontract, however, must apply keeping in view the relationship between the parties. The doctrine of quasi-contract cannot be applied in a situation of this nature as against the State. 19. For the reasons aforementioned, the appeal is allowed to the aforementioned extent. It would, however, be open to the school authorities to take such action, as it may deem fit and proper, in the light of the decision of this Court in _Umadevi (3)_ (supra). No costs. 8.8.B. Appeal partly allowed. C D