Citation : 2024 Latest Caselaw 8917 Guj
Judgement Date : 3 October, 2024
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IN THE HIGH COURT OF GUJARAT AT AHMEDABAD
R/LETTERS PATENT APPEAL NO.786 of 2018
In R/SPECIAL CIVIL APPLICATION NO. 4853 of 2015
With
CIVIL APPLICATION (FOR STAY) NO. 1 of 2018
In R/LETTERS PATENT APPEAL NO. 786 of 2018
With
R/MISC. CIVIL APPLICATION NO. 3274 of 2017
In R/SPECIAL CIVIL APPLICATION NO. 4853 of 2015
FOR APPROVAL AND SIGNATURE:
HONOURABLE MR. JUSTICE A.S. SUPEHIA Sd/-
and
HONOURABLE MS. JUSTICE GITA GOPI Sd/-
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1 Whether Reporters of Local Papers may be allowed NO
to see the judgment ?
2 To be referred to the Reporter or not ? YES
3 Whether their Lordships wish to see the fair copy NO
of the judgment ?
4 Whether this case involves a substantial question NO
of law as to the interpretation of the Constitution
of India or any order made thereunder ?
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AHMEDABAD MUNICIPAL CORPORATION
Versus
TRIVEDI PANKAJKUMAR BHIKHALAL
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Appearance:
MR D D VYAS, SENIOR ADVOCATE WITH MR DEEP D VYAS(3869) for the
Appellant(s) No. 1
MR YATIN OZA, SENIOR ADVOCATE WITH MR ASHISH B DESAI(5163) for
the Respondent(s) No. 1
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CORAM:HONOURABLE MR. JUSTICE A.S. SUPEHIA
and
HONOURABLE MS. JUSTICE GITA GOPI
Page 1 of 22
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Date : 03/10/2024
CAV JUDGMENT
(PER : HONOURABLE MR. JUSTICE A.S. SUPEHIA)
1. The present appeal filed under clause 15 of Letters Patent, 1865 emanates from the judgement and order dated 10.10.2017, wherein and whereby the learned Single Judge while allowing the captioned writ petition has directed the appellant-Ahmedabad Municipal Corporation to absorb the respondent as a permanent employee on the post of Teacher of Physical Education.
BRIEF FACTS
2. The respondent was appointed on 17.09.2007 pursuant to the advertisement issued by the appellant-Corporation purely on contractual basis on part time vide appointment order dated 14.09.2007 as a Physical Education Instructor / Teacher on a fixed salary of Rs.2,500/- per month initially for a period of 1 year and the same was extended from time to time. It appears that the appellant-Corporation published an advertisement dated 09.03.2015 inviting application appointing part time teacher of Physical Education on contractual basis, which prompted the respondent to file the captioned writ petition seeking regular pay scale from the date of his appointment.
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SUBMISSIONS ON BEHALF OF THE APPELLANT-CORPORATION
3. Learned senior advocate Mr.Vyas appearing for the appellant-Corporation at the outset, has submitted that the direction issued by the learned Single Judge was uncalled for as there is no regular post of Physical Education Teacher in the Corporation and the respondent was engaged on part time basis on contractual terms initially for a period of one year. It is submitted that since there is no post available, there cannot be any question of conferring the regular pay-scale. He has submitted that the learned Single Judge fell in error in issuing such directions. He has referred to the recruitment process undertaken at the relevant time by the appellant-Corporation and has submitted that after the advertisement was issued, there was number of applications received by the Corporation and the Staff Selection Committee, on 03.08.2007 examined 122 applications including the application of the respondent. It is submitted that after such applications were examined, the candidates were called for an oral interview and accordingly, the waiting list of 30 candidates was prepared, in which the name of the respondent figures at Sr. No.13. Pursuant to the aforesaid selection process undertaken by the committee comprising of 5 members, the respondent was issued the appointment order dated 14.09.2007 appointing him on part time basis as Physical Education Teacher.
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He was appointed as Instructor in the Gym run by the appellant-Corporation.
4. It is submitted that in fact, the Corporation has not created any post of Physical Education Teacher and Corporation is appointing such persons like respondent in order to take their service in Gyms or Swimming Pools etc. He has submitted that the learned Single Judge has incorrectly held that the respondent is entitled for the regular pay-scale and he can be regularized after completion of 5 years of service in view of the policy of the Corporation. It is submitted that in fact, the respondent has tried to mislead this Court by placing reliance on the form at Annexure-C at Page No.16 and the instructions mentioned therein, more particularly at Page No.24, Instructions Nos.19 and 20. It is submitted that in fact, such instructions are not applicable to the respondent and the same can only be applied to the employees appointed by the Corporation on regular and sanctioned post. It is submitted that the form, which is annexed in the writ petition is a blank form and does not pertain to the respondent, who was appointed on part time basis as a Physical Education Teacher and there is no such sanctioned post in the establishment and hence, the Corporation takes service of the employees by preparing the waiting list and as and when their service is needed, the
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employees like the respondent are appointed on part time contractual basis.
5. It is further contended that in fact, the advertisement was issued by the Corporation on 17.04.2007 inviting application for appointing part time Physical Education Teacher and there was common advertisement issued for appointing other employees along with Physical Education Teacher on the post of Deputy City Engineer (Light) as well as Assistant Health Officer (Health Department) and a decision was taken that the condition attached to the forms will only apply to those candidates, who are governed under the policy and it was decided that the advertisement was in fact, misleading and the same shall be issued for making appointments on contractual basis. It is submitted that accordingly, the Staff Selection Committee took decision and passed the Resolution No.4 dated 03.08.2007 appointing part time Gym Instructor or Physical Training Instructor on lump-sum monthly salary of Rs.2,500/- on contractual basis and accordingly, the contract was entered between the respondent and Corporation, which was subsequently extended from time to time.
6. It is also contended that in order to frustrate the recruitment process, which was initiated vide advertisement dated 09.03.2015,
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the respondent has approached this Court and instead of applying in the advertisement, he has obtained stay on the recruitment process. Finally, he has submitted that the respondent will be given preference and provided marks in view of experience, as and when he files an application pursuant to the advertisement. In support of his submissions, he has placed reliance on the decisions of the Apex Court in the case of Union of India and Ors. Vs. Ilmo Devi and Anr., 2021 S.C.C. OnLine SC 899 and State of Tamil Nadu and Anr. Vs. A.Singamuthu, (2017) 4 S.C.C. 113.
SUBMISSIONS ON BEHALF OF THE RESPONDENT-EMPLOYEE
7. Vehemently opposing the aforesaid submissions, learned Senior Advocate Mr.Oza appearing for the respondent-employee has submitted that the decision passed by the learned Single Judge may not be interfered with. It is submitted that it is not the case of the appellant that the respondent was appointed by way of back door entry as he has undergone the recruitment process. It is submitted that the learned Single Judge has precisely observed that the respondent is entitled to regular pay-scale, after completion of 5 years of service as per the policy of the Corporation, which is annexed along with the application form. He has referred to the
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condition Nos.19 and 20 of the form annexed in the writ petition and has submitted that as per the policy, the respondent is entitled to be placed in regular pay-scale, after completion of 5 years of service.
8. In support of his submissions, learned senior advocate Mr.Oza has placed reliance on the decision of the Apex Court in the case of Vinod Kumar and Ors. Vs. Union of India and Ors. , 2014 INSC 332. He has also referred to the decision of the Apex Court in the case of Dhirendra Chamoli And Anr. vs State Of U.P. , (1986) 1 S.C.C. 637 and has submitted that the work of the respondent is perpetual in nature and hence, he cannot be denied regularization. The reliance is also placed by him on the decision of the Apex Court in the case of State of Punjab and Ors. Vs. Jagjit Singh and Ors., (2017) 1 S.C.C. 148. He has also placed reliance on the Apex Court in the case of Somesh Thapliyal and Anr Vs. Vice Chancellor, H.N.B. Garhwal University and Anr., (2021) 10 S.C.C. 116.
ANALYSIS OF THE FACTS AND PLEADINGS
a) Whether the appointment is back-door entry or not?
9. We have heard the learned senior advocates appearing for the respective parties and have
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also perused the documents as pointed out by them.
10. The learned Single Judge has directed the appellant-Corporation to absorb the respondent on the permanent post of Physical Education Teacher, who was appointed on contractual basis. The appointment order, which is placed on record dated 14.09.2007, reflects that the respondent was appointed as a part time Physical Education Teacher and was allocated duties at Gym run by the appellant-Corporation. It is further revealed that the contract was also entered between the Corporation and the respondent. The contract is translated and incorporated as under:
"Contract Letter Regarding allotment of work of the Part Time Physical Training Teacher at Ambubhai Purani Vyayam Vidhyalay ( Physical Training School) of the Ahmedabad Municipal Corporatoin
Name of the Officer alloting (entrusted) the work :
Deputy Municipal Commissioner ( South Zone)
- on behalf of the Municipal Commissioner Ahmedabad Municipal Corporation, Sardar Patel Bhavan, Danapith, Ahmedabad,
Name of the persons accepting the work :
Trivedi Pankajkumar Bhikhalal
Address of the person accepting the work :
B/304, Trishla Appartment, Opp. Sakar School, New C.G. Road, Chandkheda, Ahmedabad.
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Particulars of the work :
1. Shri Trivedi Pankajkumar B. is hereby engaged by way of contract for the work of Part Time Physical Training Teacher.
2. He shall have to carry out the work on the working days of the Municipal Corporation as and when the work is assigned to him.
Tenure of Contract :
Tenure of his contract shall be of one year from the date of taking charge after the execution of Contract Letter, that is, from 17/09/2007 to 16/09/2008.
Amount of Contract :
He shall be paid total Rs. 30,000/- as an amount of Contract, and this amount shall be paid to him on monthly basis in total 12 equal installments. The amount of Service Tax which is to be paid on monthly basis from the amount of Contract as per the Government norms shall be borne by the Municipal Coroporation and it shall be credited to the concerned institution. The amount of contract shall be paid from the account of Vya. Vi. (Vyayam Vidhyalay) Conditions of Contract :
1. He shall not be able to terminate the Work Contract entruted to him before six months, if either of the parties intend to cancel the contract in the meanwhile, then 15% of the Contract amount shall have to be paid.
2. The work entrusted to him shall be carried out seriously and by adhering to the Rules and Regulations of Municipal Corporation.
3. The amount for the day he does not carry out his work shall be deducted proportionately from the fixed amount of Contract.
4. He shall have to scrupulously follow all the Rules and Regulations of the Municipal Corporation.
5. He shall not be able to practice elsewhere during the concurrency of the tenure of contract.
Sd/- illegible sd/- illegible Signature of the Contractee : Deputy Municipal Commissioner Date : (South Zone) Signature of Witnesses : Ahmedabad Municipal Corporation
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1. sd/- illegible
2. sd/- illegible "
11. The terms of the contract reveals that he was appointed on contractual basis by the Corporation for contract sum of Rs.30,000/-, equally divided in 12 months. It appears that since the advertisement dated 09.03.2015 was issued by the Corporation inviting applications to appoint part time Physical Education Teacher, he filed the captioned writ petition for the following prayers:
"[B] Your Lordships may be pleased to issue a writ of Mandamus or any other appropriate writ order or direction directing that the selection of the petitioner was a regular selection, after following the regular process of selection and that he is entitled for regular pay scale from the date of his appointment and further direct the respondent authority to give all consequential benefits, monitory and non-monitory inclusive of the full back wages.
[C] Your Lordships may be pleased to direct the respondent authority that the service of the petitioner cannot be terminated in any manner contrary to one by which services of a permanent employee can be terminated."
12. Thus, the prayer clause reveals that the appellant has sought direction directing the appellant-Corporation to consider his selection as regular selection and to place him in the regular pay-scale.
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13. It is established fact that the respondent was appointed in view of the recruitment process undertaken by the appellant-Corporation by issuing the advertisement dated 17.04.2007. The advertisement refers to filling up the posts of 3 departments viz. - (i) Light Department, (ii) Health Department and (iii) (Vyayam Vidyalay)- Physical Training Schools. So far as the first 2 departments are concerned, the posts of Deputy City Engineer (Light) and Assistant Health Officer were sought to be filled in and in case of Physical Training School, the advertisement refers the post to be filled in by part time Physical Education Teachers.
14. Pursuant to the advertisement, the Corporation received 122 applications for the post of Physical Education Teacher. The committee comprising of 5 members i.e. Deputy Municipal Commissioner, Municipal Chief Auditor, Additional Chief fire Officer, General manager (Parks and Garden) and Principal, Ambhbhai Purani Physical Training School met on 03.08.2007 and
candidates were given marks in view of their experience and accordingly, 'waiting list' of male and female candidates were prepared. In the waiting list of male candidates, the name of the respondent figures at Sr. No.13 and he had secured 14.8 marks. The Committee has taken the
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decision that such selected candidates, whose name figure in the waiting list, are to be appointed on contractual basis on a monthly fixed pay of Rs.2,500/-. Thus, so far as the selection of the respondent is concerned, the same cannot be in any manner held to be a back door Entry.
b) Issue of absorption/regularization :
15. We have held that the appointment of respondent cannot be said to be backdoor or illegal, however, the question which falls for deliberation is that whether he can be absorbed on the post of Physical Training Teacher and conferred regular pay scale or not ?
16. The established fact is that the respondent had categorically prayed in the writ petition that he may be granted regular pay-scale from the date of his appointment. The learned single judge has directed for absorption on the post of Physical Training Teacher. Thus, before issuing such directions, it was necessary to establish the existence of such post. It is no more res integra that absorption of a part time teacher on a particular post on which he/she is working cannot be ordered unless there is a sanctioned post. The writ petition is bereft of such details. In the writ petition, the respondent has not made any averment with regard to claim of
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particular pay-scale and also the writ petition is blissfully silent on the aspect as to whether the post, on which he was appointed, is a regular post and there is an existing sanctioned post of Physical Education Teacher in the set-up of the Corporation and the same carries a particular regular pay scale. The appellant - Corporation have categorically contended that no such regular post is in existence and work of Physical Education Teacher is undertaken by appointing persons on contractual basis since the Corporation has not formed any rule creating post of Physical Education Teacher. Such vital aspect has been ignored by the learned Single Judge.
17. The learned Single Judge has primarily placed reliance on the blank form, which is annexed as Aannexure-C at Page No.16 and the appendix/conditions annexed along with such form. The condition No.19 specifically mentions that after completion of 2 years of service, a candidate will be continued in case his service is found to be satisfactory and condition No.20 refers to some policy, in which it is mentioned that after completion of 5 years of service, a candidate will be appointed on regular pay-scale. However, unless the respondent proves and establishes that there is a sanctioned post of Physical Education Teacher having a particular
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pay scale, the aforesaid conditions annexed along with the Form cannot routinely apply to him.
18. It appears that the Corporation, precisely invited applications for filling up 3 posts, as mentioned in the advertisement dated 17.04.2007 and such conditions were incorporated for the posts, which were other than Physical Education Teacher and common Forms having the appendix were issued for these posts also. The respondent cannot take benefit of 'blank form' at (Annexure'C') which is issued commonly for all the posts. Such intention can be gathered from the noting of the meeting held by the Selection Committee on 03.08.2007 while preparing the waiting list. The Selection Committee has categorically held that the Form is common in the advertisement, and the appointment is to be given on contract basis. The respondent cannot be allowed to take benefit of the conditions mentioned in the blank Form in wake of the contract entered between the Corporation and him as mentioned hereinabove. The service condition of the respondent is governed by the terms of his contact with the Corporation.
19. There cannot be any cavil on the legal precedent envisaged in the judgements on which reliance is placed by the respondent. However,
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the same will not come to the rescue of the respondent. In case of Vinod Kumar & Ors (supra), the Apex Court was dealing with the Accounts Clerk who were serving on temporary basis for more than 25 years, and were appointed for specific scheme. The facts suggest that though they were appointed on temporary period, they were performing the duties of regular employees. The striking distinguishing feature is that the Accounts Clerk had also undergone promotion process by Departmental Promotional Committee. In present case, the issue of performing the duties of regular Physical Training Teacher will not arise, since there is no such post on the set-up of the Corporation. In the case of Dhirendra Chamoli (supra), on which reliance is placed by the respondent, the Apex Court was dealing with the issue of "equal pay for equal work". The causal workers were doing work akin to Class-IV employees, hence the Apex Court directed for paying salary and allowances of Class-IV employees. Similar issue has been considered by the Apex Court in the case of Jagjit Singh and Ors. (supra). Though, the respondent in the prayers has claimed regular salary, he has failed to establish his claim apropos any Class of posts. There is no mention about particular 'regular' pay-scale. Reliance placed by the respondent on the decision in case of Somesh Thapliyal (supra) is also misconceived. The said
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decision pertains to substantive appointment on sanctioned posts.
20. We may refer to the decision of the Apex Court in case of Ilmo Devi (supra), wherein the Apex Court while dealing with the issue of regularization of part-time employee has held thus:
".5 Even the regularization policy to regularize the services of the employees working on temporary status and/ or casual labourers is a policy decision and in judicial review the Court cannot issue Mandamus and/or issue mandatory directions to do so. In the case of R.S. Bhonde and Ors. (supra), it is observed and held by this Court that the status of permanency cannot be granted when there is no post. It is further observed that mere continuance every year of seasonal work during the period when work was available does not constitute a permanent status unless there exists a post and regularization is done.
8.6 In the case of Daya Lal & Ors. (supra) in paragraph 12, it is observed and held as under:-
"12. We may at the outset refer to the following wellsettled principles relating to regularisation and parity in pay, relevant in the context of these appeals:
(i) The High Courts, in exercising power under Article 226 of the Constitution will not issue directions for regularisation, absorption or permanent continuance, unless the employees claiming regularisation had been appointed in pursuance of a regular recruitment in accordance with relevant rules in an open competitive process, against sanctioned vacant posts. The equality clause contained in Articles 14 and 16 should be scrupulously followed and Courts should not issue a direction for regularisation of services of an employee which would be violative of the constitutional scheme.
While something that is irregular for want of compliance with one of the elements in the process of selection which does not go to the root of the process, can be regularised, back door entries, appointments contrary to the constitutional scheme and/or appointment of ineligible candidates cannot be regularised.
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(ii) Mere continuation of service by a temporary or ad hoc or daily-wage employee, under cover of some interim orders of the court, would not confer upon him any right to be absorbed into service, as such service would be "litigious employment". Even temporary, ad hoc or daily-wage service for a long number of years, let alone service for one or two years, will not entitle such employee to claim regularisation, if he is not working against a sanctioned post. Sympathy and sentiment cannot be grounds for passing any order of regularisation in the absence of a legal right.
(iii) Even where a scheme is formulated for regularisation with a cut-off date (that is a scheme providing that persons who had put in a specified number of years of service and continuing in employment as on the cut-off date), it is not possible to others who were appointed subsequent to the cut-off date, to claim or contend that the scheme should be applied to them by extending the cut- off date or seek a direction for framing of fresh schemes providing for successive cut-off dates.
(iv) Part-time employees are not entitled to seek regularisation as they are not working against any sanctioned posts. There cannot be a direction for absorption, regularisation or permanent continuance of part-time temporary employees.
(v) Part-time temporary employees in government-run institutions cannot claim parity in salary with regular employees of the Government on the principle of equal pay for equal work. Nor can employees in private employment, even if serving full time, seek parity in salary with government employees. The right to claim a particular salary against the State must arise under a contract or under a statute. [See State of Karnataka v. Umadevi (3) [(2006) 4 SCC 1], M. Raja v. CEERI Educational Society [(2006) 12 SCC 636], S.C. Chandra v. State of Jharkhand [(2007) 8 SCC 279], Kurukshetra Central Coop. Bank Ltd. v. Mehar Chand [(2007) 15 SCC 680] and Official Liquidator v. Dayanand [(2008) 10 SCC 1.]
8.7 Thus, as per the law laid down by this Court in the aforesaid decisions part-time employees are not entitled to seek regularization as they are not working against any sanctioned post and there cannot be any permanent continuance of part-time temporary employees as held. Part-time temporary employees in a Government run institution cannot claim parity in salary with regular employees of the Government on the principle of equal pay for equal work.
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8.8 Applying the law laid down by this court in the aforesaid decisions, the directions issued by the High Court in the impugned judgment and order, more particularly, directions in paragraphs 22 and 23 are unsustainable and beyond the power of the judicial review of the High Court in exercise of the power under Article 226 of the Constitution. Even otherwise, it is required to be noted that in the present case, the Union of India/Department subsequently came out with a regularization policy dated 30.06.2014, which is absolutely in consonance with the law laid down by this Court in the case of Umadevi (supra), which does not apply to the part-time workers who do not work on the sanctioned post. As per the settled preposition of law, the regularization can be only as per the regularization policy declared by the State/Government and nobody can claim the regularization as a matter of right dehors the regularization policy. Therefore, in absence of any sanctioned post and considering the fact that the respondents were serving as a contingent paid part-time Safai Karamcharies, even otherwise, they were not entitled for the benefit of regularization under the regularization policy dated 30.06.2014."
21. Thus, the Apex Court, after survey of various judgements has summarised the law relating to the regularisation of part-time employees. It is held that the part-time employees are not entitled to seek regularization as they are not working against any sanctioned post and there cannot be any permanent continuance of part-time temporary employees as held. In the instant case, the respondent has failed to establish that a sanctioned post of Physical Training Teacher is in existence in the setup of the Corporation, and the work or duties performed by the respondent is akin to the such post. The cause for filing the writ petition is the issuance of advertisement by the Corporation inviting the applications again for filling up the post of Physical Education
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Teacher on contractual basis. It appears that in fear of losing his job, the respondent filed the writ petition claiming the regular pay-scale.
CONCLUSION
22. Thus, in absence of any material to show that whether the post of Physical Education Teacher is created under the Rules and Regulations of the Corporation and such post of Physical Education Teacher carries particular pay-scale, the respondent cannot claim the regular pay-scale. The learned Single Judge fell in error in allowing the writ petition and issuing the direction to the Corporation to absorb him on a post and to confer him the regular pay-scale, without examining the fact that a particular pay- scale is attached to the post of Physical Education Teacher and post of Physical Education Teacher is sanctioned post and is created under the Rules and Regulations by the Corporation. The learned Single Judge has ordered absorption on the post of Physical Teacher which does not exist in the regular setup. Absorption can only be done on a sanctioned setup post.
23. There is another consequence of directions issued by the learned Single Judge for absorption. The recruitment of the Corporation is confined to appointing the part-time Physical Education Teacher on contractual basis in "Vyayam
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Vidyalay", whose services are required at various places like Gyms and Swimming Pools organized/run by the Corporation. The Corporation had prepared waiting list of 30 candidates in male category and 18 in female category for appointing them in "Vyayam Vidyalay". Any direction of absorption in the case of the respondent will also trigger claim of absorption in regular pay scale by all other candidates also. This will be a detrimental offshoot to the interest of the Corporation. The Corporation being an employer, is conferred with the power and authority to engage employees on either contractual or ad hoc or on part-time basis for work or for carrying out the duties, which are required by it to be performed in a particular department for a particular purpose. An employee, as a matter of right, cannot claim regularization or regular pay-scale on such post without establishing that such post, on which claim is asserted for regular pay-scale, is in fact, existing in the set-up of the Corporation. In absence of such material, the learned Single Judge has absolutely stumbled in issuing the direction directing the Corporation to confer the regular pay-scale to the respondent.
24. Thus, on the bed-rock of the foregoing analysis of facts and law, the present Letters Patent Appeal succeeds and is allowed. The impugned judgement and order passed by the
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learned Single Judge is quashed and set aside. However, as per the statement made before us by the appellant-Corporation and as incorporated in the affidavit filed on behalf of the Corporation, the appellant-corporation shall give preference to the respondent and shall be granted age relaxation, if in case he applies for undertaking the fresh recruitment process. It is also clarified that the present decision may not be treated detrimental to his selection or further continuation as a part-timer, since he is already performing his duties since 2007 without any thing adverse reported against him. We also express that in case the work of Physical Training Teacher is of perennial nature, the Corporation may create a sanctioned regular post, which can be filled up by undertaking regular recruitment process. Being a model employer, it is expected from the Corporation to create a sanctioned post carrying perennial duties, and should not exploit the persons employed on daily wages, contractual or ad hoc. If such employees are continued on long term basis and their contract is continued beyond the initial period, the Court can presumes that there is regular need for their services, hence there is need to create regular post. We hope that the Corporation will act accordingly.
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25. The interim relief, if any shall stand vacated. The connected civil application for stay also stands disposed of.
ORDER IN MISC. CIVIL APPLICATION NO.3274 OF 2017
In view of the aforesaid order, the captioned Misc. Civil Application for contempt is ordered to be detagged. Registry shall list the same before the Bench assigned such roster.
Sd/-
(A. S. SUPEHIA, J)
Sd/-
(GITA GOPI,J) NVMEWADA/1
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