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2875
FOREST, ECOLOGY AND ENVIRONMENT SECRETARIAT
Sub: -
Regularization of contract employees of Karnataka State Pollution Control Board –Reg.
Ref: -
1.
Proposal of Karnataka State Pollution Control Board bearing No. ªÀiÁ¤ªÀÄ/DqÀ½vÀ/
UÀÄ.£Ë.¸À/2010-11/859 dated 28.12.2010.
2.
Government letter No.FEE 20 EPC 2010 dated 09.03.2011 addressed to the
Member Secretary, Karnataka State Pollution Control Board.
3.
Orders of the Hon'ble High Court of Karnataka dated 27.02.2012 made in W.P.No.
46647/2011 (S-REG).
4.
Government letter No. FEE 56 EPC 2012 dated 02.04.2012, 05.05.2012 and D.O.
letter dated 14.05.2012 addressed to the Member Secretary, Karnataka State
Pollution Control Board.
5.
Letter No. ªÀiÁ¤ªÀÄ 01 DqÀ© 10/100 dated 29.05.2012 and 31.05.2012 of the
Karnataka State Pollution Control Board.
6.
Government letter No.56 EPC 2012 dated 07.06.2012 addressed to petitioner in
W.P.No. 46647/2011 (S-REG).
7.
Requisition dated 18.06.2012 submitted by the Karnataka State Pollution Control
Board Contract Employees Association (R) to the Secretary to Government,
Department of Forest, Ecology and Environment.
PREAMBLE
The proposal of Karnataka State Pollution Control Board read at (1) above was submitted to Government for
regularization of their contract employees. The proposal has been examined at Government level in the light of the following
opinion/guidelines of the Department of Personal and Administrative Reforms (DPAR).
(i)
The States have made Acts, Rules and Regulations for implementing the constitutional guarantees and any
recruitment to the service in the State or in the Union is governed by such Acts, Rules and Regulations. The
Constitution does not envisage any employment outside this constitutional scheme and without following the
requirements set down therein.
(ii)
When a person enters a temporary employment or gets engagement as a contractual or casual workers and the
engagement is not based on a proper selection as recognized by the relevant rules or procedure, he is aware of the
consequences of the appointment being temporary, casual or contractual in nature. Such a person cannot invoke
the theory of legitimate expectation for being confirmed in the post.
(iii)
There should be no further by-passing of the constitutional requirement and regularizing or making permanent, those
not duly appointed as per the constitutional scheme.
(iv)
The issue has to be dealt in accordance with Circular No. ¹.D.¸ÀÄ.E 25 PɸÀC 2003 ¢£ÁAPÀ:25.05.2006.
06.07.2006 and circular No. ¹.D.¸ÀÄ.E 25 PɸÀC 2003 (Part) dated 13.11.2006. The circular instructions applies to
the contract employees who have been taken after 01.07.1984. The Orders of the Hon'ble Supreme Court dated
10.04.2006 wherein detailed guidelines are set, applies to the State Government. The Hon'ble Court has clarified that
'merely because a temporary employee or casual wage worker is continued for a time beyond a term of his
appointment he would not be entitled to be absorbed in regular service or made permanent, merely on the strength
of the such continuance, if the original appointment was not made by following due process of selection as envisaged
by the relevant rules.
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After careful consideration of the proposal, it was observed that no such selection process was followed by the Board
while engaging contract workers in the KSPCB and they were engaged on adhoc basis and are being continued from time to time.
The Government further opined that the issue of regularization of the temporary employees has already been viewed on
humanitarian grounds at the Govt. level. Necessary amendments have already been issued to the Cadre and Recruitment rules of
Karnataka State Pollution Control Board providing for addition of weightage of four percent of marks for each satisfactory completed
year of service rendered, with a view to enable the candidate to get selected/absorbed in the direct recruitment process being
followed by the Board.
The Government was also of the view that, the Hon'ble Supreme Court has categorically stated that no further by-passing
of the constitutional requirement and regularizing or making permanent, those not duly appointed as per the constitutional scheme.
It was therefore decided that, the process of regularization of contract employees in the Karnataka State Pollution Control
Board who have been appointed without following due process of Cadre and Recruitment Rules will not fulfill the testimony of Law.
As the recruitment or the regularization need to be in accordance with the eligibility criteria prescribed for each category of
posts and as per the roaster rules of the State Govt. giving due weightage to different categories that is for SC/ ST /rural/ women
and physically challenged. The recruitment also needs to be made following the general recruitment rules duly notifying the
vacancies for recruitment and the candidate must possess the requisite qualifications and considering the provision of 4% marks as
weightage for the service rendered in the contractual employment and age relaxation provided vide Order No. FEE 2 EPC 2008
dated 12.11.2009, the proposal of framing special rules for absorption of remaining contract employees was turn down vide
Government letter read at (2) above as it does not survive testimony of Law.
Having aggrieved by this decision of Government, the Karnataka State Pollution Control Board Contract Employees
Association (Regd) represented by its Secretary and President filed W.P.No. 46647/2011 in the Hon'ble High Court of Karnataka
praying for quashing the above communication issued by Government vide letter read at (2) above and to issue Writ of Mandamus
directing the First Respondent, the Karnataka State Pollution Control Board to consider the representation of the petitioners to
regularize their services.
The Hon'ble High Court while allowing the Writ Petition vide Order dated 27.02.2012 have quashed the Government letter
dated 09.03.2011 read at (2) above and have remanded the matter to the Second Respondent, that is the Secretary to Government,
Ecology and Environment Department for re-consideration after providing an opportunity of hearing to the petitioner and in the light
of the judgement of the Apex Court in M.L.Kesari's case.
Pursuant to the above orders of the Hon'ble High Court, the Karnataka State Pollution Control Board was asked vide
letters read at (4) above to submit details of contract employees for re-consideration. The Karnataka State Pollution Control Board
have submitted the details of contractual employees working presently with them vide letters read at (5) above. The Board also
have requested for framing special rules for the regularization of 107 employees working presently in different cadres.
The petitioners in Writ Petition No. 46647/2011 (S-REG) were invited to provide an opportunity of being heard vide
Government letter read at (6) above to be present on 18.06.2012 before the Secretary to Government, Ecology and Environment
Department in his chamber and furnish all the relevant information. The petitioners appeared before the Secretary to Government,
Ecology and Environment Department and submitted a written statement requesting for regularization of the services of 107
members in the Karnataka State Pollution Control Board. The main contentions raised among others are as follows:
(1) There are 107 employees in the Karnataka State Pollution Control Board working in different cadres from Class- II to
Class IV for a period of 10 to 15 years without break.
(2) All the contract employees have been working satisfactorily.
(3) There were periodical assurances from the Board that their services would be regularized.
(4) The Board has even passed the resolution to take steps to regularize them and recommended it to Government.
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(5) The Advisory Committee has empowered the Chairman of the Board to take decision to regularize the services of
contract employees.
(6) All the contract employees fulfill the qualification and criteria fixed for regularization of their services.
(7) For all practical purposes all contract employees are treated as regular employees and work has been accordingly
entrusted. The bio metric system of recording attendance is provided and the salary is paid on monthly basis through the
Corporation Bank, M.G.Road Branch.
(8) Opinion of the Legal Advisory Committee dated 09.04.2008 clearly discloses that the contract employees are appointed as
against sanctioned vacant posts and that these employees have required qualification.
(9) The Board is an autonomous body and no permission is taken from the Government to recruit any of these 107 contract
employees. The Cadre, Recruitment and Condition of Service Regulations, 1992 provided for appointment on contract
basis. There is no regulation indicating that the Board is require to take the permission of the Government to regularize
the services of the contract employees. There is no requirement of special rules to be framed.
(10)
Others Board and Corporations appointed by the Government of Karnataka which were similarly placed have regularized
the services of their contract employees. For instance, Karnataka Renewable Energy Development Ltd. have regularized
the services of contract employees as per Order dated 28.07.2006. Similarly the Karnataka Industrial Area Development
Board regularized the services of contract employees vide order dated 16.01.1997, Krishna Bhagya Jala Nigam Limited
regularized services of contract employees on 28.02.2004 and recently The Karnataka Part Time Job Oriented Course
Employees Absorption Act, 2011 has received its assent from the Governor. The contractual employees of the KSPCB
also need to be absorbed in the similar way.
(11)
The four percent weightage provided for every satisfactorily completed years of service does not benefit the employees.
Once such a benefit is availed it cannot be extended to second time even if the person is not selected at the first attempt.
(12)
The Hon'ble High Court of Karnataka vide Order dated 27.02.2012 issued in Writ Petition No. 46647 of 2011 refer to
paragraph 5 of the judgement of the Hon'ble Supreme Court in M.L.Kesari's case in which criteria is laid down for
absorbing the contract employees in various Government Departments.
(13)
The Hon'ble Supreme Court in the judgement of Poornachandra Pandey Vs UP State Electricity Board observed that in
each and every case the ratio laid down in Umadevi's case is not applicable. Further, the Hon'ble Supreme Court as well
as High Court of Karnataka has observed in various judgements regarding the guidelines that are required to be kept in
mind while considering the case of contract employees for regularization of their services. One such unreported
judgement is made by the Hon'ble High Court in Writ Petition No. 9916/2004 vide Order dated 26.08.2010 in which it is
specified that "it is held that any person employed either temporarily or on daily wage basis and who has served
continuously for a period of more than 10 years, he should normally be considered for regularization. The stress should
be on the 10 years minimum service and not on any cutoff date." The Government of Karnataka in the instant case has
already implemented the Court order.
(14)
Order of the Hon'ble High Court of Karnataka in Writ Petition No. 46647/2011 is to be read in favourable and harmonious
manner coupled with the letters dated 29.05.2012 and 31.05.2012 of the Karnataka State Pollution Control Board wherein
a positive step for regularizing the services of contractual employees is requested.
The task before the Government is reconsideration of the issue of regularization of 107 contract employees of the
Karnataka State Pollution Control Board pursuant to the orders of the Hon'ble High Court of Karnataka in Writ Petition No.
46647/2011 dated 27.02.2012 in the light of the judgement of the Apex Court in M.L.Kesari's case.
The Hon'ble Apex Court in SLP (C) No. 15774/2006 State of Karnataka and Others Vs M.L.Kesari's and Others dated
03.08.2010, under para 5 have clarified that there is an exception to the general principles against "regularization" enunciated in
Umadevi if the following conditions are fulfilled:
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(i)
The employee concerned should have worked for 10 years or more in duly sanctioned post without the benefit or
protection of the interim order of any court or tribunal.
(ii)
The appointment of such employee should not be illegal even if irregular where the appointments are made and
continued against sanctioned post or where the persons appointed do not possesses the prescribed minimum
qualification, the appointments will be considered to be illegal. But, where the person employed possessed the
prescribed qualification and was working against the sanctioned post but had been selected without undergoing the
process of open competitive selection, such appointments are considered to be irregular.
The Hon'ble Apex Court in para 7 of the M.L.Kesari's case have stated that "the one time exercise should consider all
daily wage / adhoc / those employees who had put in 10 years of continuous service as on 10.04.2006 without availing the
protection of any interim orders of courts or tribunals".
While examining the instant case of regularization of daily wage employees in the light of the above analysis made by the
Hon'ble Apex Court in M.L.Kesari's case taking into account the contentions of the petitioners raised in their written submission
made vide letter dated 18.06.2012 and earlier occasions the following issues emerge for consideration.
(a) Whether the daily wage employees who are seeking regularization of service in Karnataka State Pollution Control Board
have completed a minimum of 10 years service without availing the protection of any interim orders of court or tribunal as
on the date of 10.04.2006, the date of order of Hon'ble Supreme Court in Umadevi's case and reiterated in the orders of
M.L.Kesari's case.
(b) Whether the appointment made is illegal or irregular.
While going through the report submitted by the Karnataka State Pollution Control Board vide letter read at (5) above, out
of 107 employees presently working on contract basis in Karnataka State Pollution Control Board only the following three employees
have completed a minimum of 10 years of continuous service as on 10.04.2006 without availing the protection of any interim orders
of court or tribunal:
Sl.
No.
Name of the person
Post to which
appointed
Date of Appointment
Number of year of service
as on 10.04.2006
1.
Sri Rudrappa Kamatar
SDA
08.03.1996
10 years 1 month
2.
Sri H.T.Srinivasa
SDA
30.03.1996
10 years
3.
Sri T. Shivanna
SDA
01.03.1996
10 years 1 month
All others having not put in a minimum of 10 years service in contractual employment in the Board as on 10.04.2006, do
not qualify to get the benefit of regularization in the light of the orders of the Apex Court in Umadevi's case and as well as
M.L.Kesari's case.
From the report of the Karnataka State Pollution Control Board it appears that the appointment of the above mentioned
three contractual employees fitting the definition of "irregular" as defined by the Hon'ble Apex Court in M.L.Kesari's case. However,
this is subject to confirmation by the Karnataka State Pollution Control Board.
Further it is also observed by the Government that right to equal opportunity and constitutional right of reservation policy
provided to SC & ST and other classes cannot be taken away by way of enmass regularization of contract employees. The
constitutional process of recruitment through notification and providing equal opportunities to all eligible candidate shall not be
vitiated / tampered upon. The Karnataka State Pollution Control Board cadre and Recruitment rules of 1992 only provided
appointment of officials on contract for a period of one year for a specific purpose. The Board would have followed the process of
open recruitment, as against, appointment of officials on contract. Just because the contract employees are continued thereby have
inherited the right to get regularized, does not survive as fundamental right of other eligible candidates to be appointed through a
legitimate process of open recruitment and reservation policy cannot be taken away and infringed upon.
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The Government have already provided 4% of weightage for each completed year of services rendered by the contract
employees to get an entry through open recruitment policy following the roaster system.
The contention of the contract employees to consider 10 years of completed service as on date of the Hon'ble High Court
order dated 27.02.2012 also does not survive the testimony of Law, in view of M.L.Kesari's case which specifies that a candidate
become eligible only when if one has completed 10 years of service or more as on 10.04.2006 without intervention of the court
order. Therefore the fundamental right of eligible candidates to be appointed through constitutional process of recruitment and
reservation policy cannot be taken away on these plea forwarded by the contract employees and hence it does not survive for
consideration while other issues raised by the contract employees also does not survive for consideration in view of the judgement
rendered by the Hon'ble Supreme Court in M.L.Kesari case.
In view of the facts in the foregone paras only the three contractual employees mentioned above are eligible to get
regularized in the Karnataka State Pollution Control Board in accordance with the statutory provisions and the orders of the Apex
Court.
Hence the order.
Government Order No. FEE 56 EPC 2012 Bangalore Dated: 17.07.2012
The issue of regularization of contractual employees in the Karnataka State Pollution Control Board has been re examined
in accordance with the provisions of law and in the light of orders of the Hon'ble Supreme Court in M.L.Kesari's case as per the
directions of Hon'ble High Court of Karnataka dated 27.02.2012 in Writ Petition No. 46647 of 2011 (S-REG) after providing an
opportunity of being heard to the petitioners and ordered as follows:
(i)
The services of following three contract employees who have completed a minimum of 10 years of continuous
service without availing the protection of any interim orders of court or tribunal as on 10.04.2006 may be regularized
following due procedure of law and verifying the facts with regard to date of appointment, the post against which
appointment was made, whether the person possesses minimum qualification, etc.
Sl.
No.
Name of the person
Post to which
appointed
Date of Appointment
Number of year of service
as on 10.04.2006
1.
Sri Rudrappa Kamatar
SDA
08.03.1996
10 years 1 month
2.
Sri H.T.Srinivasa
SDA
30.03.1996
10 years
3.
Sri T. Shivanna
SDA
01.03.1996
10 years 1 month
(ii)
The proposal for regularization of the remaining contract employees of the Karnataka State Pollution Control Board
who have not completed a minimum of 10 years service as on 10.04.2006 as contractual employee in the Karnataka
State Pollution Control Board cannot be considered under the facts and circumstances traversed in the preamble and
in the light of orders of the Apex Court in M.L.Kesari's case. However, the contract employees will continue to get the
benefit of four percent weightage and age relaxation provided on humanitarian grounds as per the eligibility criteria if
applied during the direct recruitment to be made by the Karnataka State Pollution Control Board subject to other
terms and conditions of the order No. FEE 2 EPC 2008 dated 12.11.2009.
By order and in the name of the Governor of Karnataka,
G.H.Anasuyamma
Under Secretary to Government
(Ecology and Environment),
PR - 1997
Forest, Ecology and Environment Department.
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