Promotion jurisdiction | The Supreme Court ruled that the Federal Service Tribunal exceeded its jurisdiction by declaring Muhammad Anwar 'qualified' for promotion and ordering proforma promotion.
The Supreme Court ruled that the Federal Service Tribunal exceeded its jurisdiction by declaring Muhammad Anwar 'qualified' for promotion and ordering proforma promotion. |
یہ مقدمہ ایک سابق سرکاری اہلکار، محمد انور، اور حکومت پاکستان کے درمیان تھا۔ محمد انور نے وفاقی سروس ٹربیونل میں اپیل دائر کی تھی، جس میں انہوں نے اپنے خلاف عائد کی گئی بڑی سزاؤں کے فیصلے کو چیلنج کیا۔ ان کا موقف تھا کہ انہیں ترقی سے محروم رکھا گیا، حالانکہ ان کی پوسٹوں کی اپ گریڈیشن ہو چکی تھی۔
وفاقی سروس ٹربیونل نے محمد انور کے حق میں فیصلہ دیتے ہوئے اسے ترقی کے لیے 'اہل' قرار دیا اور پروفارما ترقی کی ہدایت دی۔ تاہم، وزارت خزانہ نے اس فیصلے کو سپریم کورٹ میں چیلنج کیا، یہ دلیل دیتے ہوئے کہ ٹربیونل نے ترقی کے معاملے میں اپنے دائرہ اختیار سے تجاوز کیا ہے۔
سپریم کورٹ نے اس معاملے میں فیصلہ سناتے ہوئے ٹربیونل کے فیصلے کو مسترد کر دیا، اور کہا کہ ٹربیونل کو ترقی کے لیے اہل قرار دینے اور پروفارما ترقی کی ہدایت دینے کا اختیار نہیں تھا۔ عدالت نے یہ بھی کہا کہ اگر پروفارما ترقی کی ہدایت پر عمل نہیں کیا گیا، تو اس پر جلد عمل درآمد کیا جائے۔
IN THE SUPREME COURT OF PAKISTAN
(Appellate Jurisdiction)
Present:
Justice Qazi Faez Isa, C.J.
Justice Amin-ud-Din Khan
Justice Athar Minallah
CIVIL PETITION NO.848 OF 2022
(Against the judgment dated 05.1.2022 of the
Federal Service Tribunal, Islamabad passed in
Appeal No.814(R)CS of 2019)
Secretary, Ministry of Finance,
Finance Division, Government of Pakistan,
and others
… Petitioners
Versus
Muhammad Anwar
…
Respondent
For the Petitioners:
Rana Asadullah Khan,
Additional Attorney General
Respondent:
In person
Date of hearing:
12.12.2023
ORDER
Athar Minallah, J. The Secretary, Ministry of Finance has challenged
the judgment dated 06-12-2021 of the Federal Service Tribunal
(‘Tribunal’) whereby the appeal filed by Muhammad Anwar (‘the
respondent’) was allowed.
2
The respondent was appointed as Assistant Director (B-17) in
the Central Directorate of National Savings (‘the Directorate’) on
15.5.1983. He was promoted to the post of Deputy Director (B-18)
w.e.f. 30.1.2002 and subsequently as Director (BS-19) on
13.01.2010. Pursuant to disciplinary proceedings initiated against
the respondent, a major penalty was imposed upon him vide order
dated 01.4.2014. Before the major penalty was imposed, the
respective posts of the Directorate in BS-09 to BS-20 were upgraded
vide the Finance Division’s office memorandum, dated 24.01.2013.
However, it was explicitly stated in the memorandum that the posts
were upgraded and it shall not be construed as automatic
upgradation of the incumbents. The incumbents were to be
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considered for promotion in accordance with the manner prescribed
in this regard. The process was initiated and the case of the
respondent was forwarded in May 2015 along with other eligible
persons to the Central Selection Board for its consideration. However,
the case of the respondent was withdrawn on the request of the
Directorate. The appeal filed by the respondent against the imposition
of a major penalty was allowed by the Tribunal vide judgment dated
10-10-2016. The judgment of the Tribunal was upheld by this Court
on 19-03-2018. It is noted that the respondent retired from service
upon attaining the age of superannuation on 15.5.2016. The latter
filed a departmental appeal on 13.5.2016 followed by another on
29.7.2016. The respondent was informed vide letter dated 07.11.2016
that his representation/departmental appeal was rejected by the
Finance Division in consultation with the Establishment Division. The
respondent preferred an appeal before the Tribunal which was
allowed vide the impugned judgment. The Tribunal has declared the
respondent to have been 'qualified for promotion' from the date when
others were promoted against the upgraded posts. The Tribunal has
further directed that the respondent be considered for promoti0on
under FR-17(1) for consequential financial benefits.
3.
The learned Additional Attorney General has argued that the
Tribunal was bereft of jurisdiction to declare the respondent to be
'qualified' for antedated promotion. He has further argued that in the
circumstances the direction to consider the respondent for proforma
promotion has become illusory. We have also heard the respondent
who appeared in person and has submitted his contentions in
writing.
4.
The question that has arisen for our consideration is whether
the Tribunal was competent and vested with jurisdiction to declare
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the respondent 'qualified' for promotion and then simultaneously
direct the competent authority to consider him for proforma
promotion. The scheme prescribed under the law for promotion of a
civil servant to a higher post is distinct from that of being considered
for proforma promotion. Moreover, the conditions, qualifications and
the prescribed process are also distinct. This also raises the question
whether the Tribunal was competent to declare that the respondent
was 'qualified' for promotion when the others were promoted because,
by doing so, the factor of fitness also appears to have been
determined which otherwise does not fall within its jurisdiction.
4.
The respondent was admittedly a civil servant and, therefore,
the terms and conditions of his service were governed under the Civil
Servants Act, 1973 (‘the Act of 1973’) and the rules made
thereunder. The respective posts of the Directorate were upgraded.
After upgradation all the posts were to be by filled by adopting the
mode of appointment through promotion to the higher post. The
terms and conditions of service of a civil servant are as provided
under the Act of 1973 and the rules made thereunder.1 A civil servant
possessing such minimum qualifications as have been prescribed
becomes eligible for promotion to a higher post reserved under the
rules for departmental promotion in the service or cadre to which the
latter belongs.2 The President, in exercise of powers conferred under
section 25 of the Act of 1973, has made the Civil Servants
(Appointment, Promotion and Transfer) Rules, 1973 (‘the Rules of
1973’). Promotion to the posts in BS-2 to BS-18 and the equivalent
are made on the recommendation of the appropriate departmental
promotion committee while, in the case of BS-19 to BS-21 and the
1
Section 3 of the Act of 1973
2
Section 9 of the Act of 1973
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equivalent, on the recommendations of the selection boards.3 The
respective competent authorities designated under the Rules of 1973
may approve the promotion of an officer or officials from the date on
which the recommendation of the central selection board has been
made.4 Sub rule 2 of rule 7 A of the Rules of 1973 provides that
notwithstanding the provisions of FR 17(1), an officer or an official
who expires or superannuates after the recommendations of the
central selection board and before the issuing of the notification shall
stand exempted from assumption of the charge of the higher post
subject to a certificate given by the Principle Accounting Officer or
officer so authorized to the effect that the officer or official has expired
or has superannuated. The promotion to the post is, therefore, one of
the modes prescribed for appointment against a higher post. The
posts have been broadly divided into two categories i.e. selection and
non-selection posts for the purposes of promotion. In case of a
selection post the promotion is made on the basis of selection on
merit while in case of a non selection post the criteria prescribed
under the Act of 1973 is seniority cum fitness. Section 9 provides that
in order to be eligible for promotion a civil servant must possess such
minimum qualifications as may be prescribed. As provided under rule
7 of the Rules of 1973, promotion to a post in pay scales 2 to 18 are
made pursuant to recommendations of the Departmental Promotion
Committee and in case of a selection post, i.e pay scale 19 to 21, the
competent authority to consider and recommend promotion is the
Selection Board. A cumulative reading of the provisions of the Act of
1973 and the Rules of 1973 clearly shows the scheme whereby a civil
servant is promoted to a higher grade. The minimum qualifications
and length of service for the purposes of eligibility are prescribed,
3 Rule 7 of the Rules of 1973
4 Rule 7-A of the Rules of 1973
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specific forums have been explicitly designated under the law to
consider and recommend an eligible civil servant to the competent
authority for the purposes of promotion to a higher post. The latter
than considers the recommendations and takes a decision
accordingly. It is implicit from the scheme provided under the Act of
1973 read with the Rules of 1973, that promotion to a higher post is
confined to a civil servant who has not retired or superannuated after
attaining the age of superannuation. The scheme does not
contemplate for a civil servant to be considered for promotion after
retirement or having attained the age of superannuation. Even the
eligible civil servants are evaluated by competent forums which have
been explicitly designated for this purpose under the law. The
recommendations of such designated forums are placed before the
competent authority. The latter does not perform ministerial
functions but has to apply an independent mind while considering
the recommendations made by the designated forum. This Court, in
Mian Abdul Malik’s case5, has held that the question of eligibility
relates to the terms and conditions of service and their applicability to
the civil servant concerned. Fitness introduces an element of
subjective evaluation on the basis of objective criteria where
substitution of an opinion of the competent authority is not possible
by the Service Tribunal or a Court. The question of evaluating the
fitness or suitability for promotion has always been within the
exclusive jurisdiction of the competent authority and it is not shared
by the Service Tribunal or a Court exercising supervisory jurisdiction
in respect of eligibility and qualification. The Tribunal nor a Court can
substitute an opinion formed by the competent forum after
undertaking careful evaluation. As a corollary, no civil servant can be
declared as 'qualified' or fit for promotion except in the manner
5 Mian Abdul Malik v. Dr. Sabir Zameer Siddiqui and others (1991 SCMR 1129)
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prescribed under the law and discussed above. Moreover, the
Tribunal is not competent to substitute the opinions formed by the
competent forums after careful evaluation. Even in the case of a civil
servant who has not retired and continues to be in service, it is
settled law that promotion is neither a vested right nor could it be
claimed with retrospective effect.6 As is obvious from the Act of 1973
and the Rules of 1973, what a civil servant may claim as of right
under the law was that the latter should be considered when the
cases for promotion are taken up. The civil servant could not call
upon a Tribunal or court to direct the department to fill the
promotion post forthwith or on a particular date nor to keep it vacant
or under consideration.7 The question of promotion rests exclusively
within the jurisdiction of the competent authority and it cannot be
ordinarily interfered with by a court or a Tribunal, except when the
competent authority has acted in violation of the law, in excess of
jurisdiction, without jurisdiction or in colourable exercise of powers
conferred upon the latter.8 The determination of the question of
fitness, being a subjective evaluation on the basis of objective criteria,
also falls within the exclusive domain of the competent authority and
the same falls outside the jurisdiction of the Tribunal or the Court.9
The competent authority is empowered to make rules for promotion
and a civil servant has no vested right in relation to the rule which
determine the eligibility, criteria and set out other conditions and also
to change or alter the rules already governing the civil servant. This
Court has already held that the rules which prescribe the
qualification or criteria for promotion to the next higher scale may be
changed because it is the prerogative of the executive authority,
6 Abid Hussain Shirazai v. Secretary Ministry of Industries and Production, (2005 SCMR 1742)
7 Muhammad Yousaf v. Chairman Railway Board (1999 SCMR 1559)
8 Muhammad Iqbal and others v. Executive District Officer (Revenue) Lodhran and others (2007
SCMR 682)
9 Muhammad Anis and others v. Abdul Haseeb and others (PLD 1994 SC 539), Dr. Ahmed Salman
Waris v. Dr. Naeem Akhter and others (PLD 1997 SC 382)
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except when it can be shown they are either person specific or based
on mala fide.10
5.
A civil servant who has retired after attaining the age of
superannuation cannot claim to be considered for promotion to a
higher post. After superannuation the civil servant may, however,
claim a right to be considered for pensionary benefits in accordance
with the policy or a scheme adopted by the competent authority. The
proviso to FR 17(1) of the Fundamental Rules empowered the
appointing authority to direct that a civil servant shall be paid the
arrears of pay and allowances of a higher post through proforma
promotion if satisfied that the civil servant who was entitled to be
promoted from a particular date was, for no fault of his own,
wrongfully prevented from rendering service to the Federation in the
higher post. The benefit is obviously intended to compensate a civil
servant for being deprived of a right to be considered for no fault on
the latter's part. The scheme for considering a claim regarding the
proforma promotion is distinct from that of promotion of a civil
servant to a higher post. It is noted that the aforementioned proviso
was omitted vide SRO No.965(I)/2022 dated 20.05.2022. The Finance
Division, vide Office Memorandum dated 20-05-2022 has, inter alia,
provided that cases of retired civil servants could be placed before the
relevant forums if there existed specific orders of judicial forums.
Moreover, according to the guidelines, cases received before 20-05-
2022 could also be entertained.
5.
The Tribunal has been established under the Service
Tribunals Act, 1973, having exclusive jurisdiction in respect of
matters relating to the terms and conditions of the service of civil
servants, including disciplinary matters. Section 5 describes the
10 Dr. Alyas Qadeer Tahir v. Secretary Ministry of Education (2014 SCMR 997)
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powers of the Tribunal and provides that it may confirm, set aside,
vary or modify the order appealed against. The Tribunal is, therefore,
not competent nor vested to alter, vary or in any manner modify the
scheme of promotion to a higher post explicitly prescribed under the
Act of 1973 and the Rules of 1973. It is settled law that if the law
requires a particular thing to be done in a particular manner it has to
be done accordingly, otherwise it would not be in compliance with the
legislative intent.11 The Tribunal was not vested with jurisdiction to
evaluate the eligibility and fitness of a civil servant for promotion to a
higher post by disregarding the scheme and competent designated
forums provided under the Act of 1973 read with the Rules of 1973.
The Tribunal had thus transgressed its jurisdiction by declaring the
respondent to be 'qualified' for promotion from the date others were
promoted. The Tribunal also fell in error by pre empting the process
required to be adopted by the designated forum for determining the
eligibility and entitlement of the respondent for the purposes of
proforma promotion. The Tribunal was justified to the extent of the
direction to the competent authority to consider the respondent for
proforma promotion because this Court, while dismissing the petition
assailing the Tribunal’s judgment dated 10-10-2016, had observed in
its order dated 19-03-2018 that the respondent had been exonerated
on the ground of defective enquiry as well as merits. It was further
observed that the charge was in the nature of alleged negligence and
not misconduct.
5.
For the above reasons, we convert this petition into an
appeal and it is allowed to the extent of declaring the respondent as
qualified for promotion when the others were promoted.
Consequently, the impugned judgment of the Tribunal, dated
11 Zia ur Rehman v. Syed Ahmed Hussain and others (2014 SCMR 1015)
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06.12.2021, is set-aside to this extent. Nonetheless, if the direction
regarding considering the respondent for proforma promotion has not
been complied with then we expect that the needful will be done at
the earliest.
Chief Justice
Judge
Judge
Announced in open Court on ____________
at Islamabad
Judge.
‘NOT APPROVED FOR REPORTING’
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