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REPORTABLE IN THE SUPREME COURT OF INDIA

CIVIL ORIGINAL JURISDICTION

WRIT PETITION (CIVIL) NO.82 OF 2011

T.S.R. Subramanian & Ors. … Petitioners

Versus

Union of India & Ors. … Respondents

WITH

WRIT PETITION (CIVIL) NO.234 OF 2011

J U D G M E N T

K.S. Radhakrishnan, J.

1. Article  32  of  the  Constitution  of  India  has  been  

invoked by few eminent retired civil servants highlighting  

the  necessity  of  various  reforms  for  preservation  of  

integrity, fearlessness and independence of civil servants  

at the Centre and State levels in the country.   Prayers  

made in this writ petition are based on various reports

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and  recommendations  made  by  several  Committees  

appointed  for  improving  the  public  administration.   On  

the basis of various reports, following reliefs are sought in  

the writ petition :-

(i) Issue a writ in the nature of mandamus or any other  

appropriate  writ,  order  or  direction  requiring  the  

Respondents  to  create  an  “independent”  Civil  

Service Board or Commission both at the Centre and  

the State based on recommendations by the Hota  

Committee,  2004  (para  5.09,  para  5.11,  Main  

Recommendations  No.38);  the  2nd Administrative  

Reforms Commission 2008 (10th Report,  para 9.8);  

the statement adopted at the Conference of Chief  

Ministers  on  Effective  and  Responsive  

Administration, 1997;

(ii) Issue a writ in the nature of mandamus or any other  

appropriate  writ,  order  or  direction  requiring  the  

respondents  to  fixed  tenure  for  civil  servants  

ensuring stability based on recommendations by Jha  

Commission  1986  (para  7.2);  Central  Staffing

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Scheme, 1996 (para 17.01, para 17.02, para 17.03,  

para  17.12),  the  2nd Administrative  Reforms  

Commission (10th Report,  para  8.7,  para 9.8,  para  

17.5),  Hota  Committee  Report,  2004  (Main  

Recommendations No.39);  

(iii) Issue a writ in the nature of mandamus or any other  

appropriate  writ,  order  or  direction  requiring  the  

respondents  to  mandate  that  every  civil  servant  

formally  record  all  such  instructions/directions/  

orders/suggestions which he/she receives, not only  

from his/her administrative superiors but also from  

political  authorities,  legislators,  commercial  and  

business  interests  and  other  persons/quarters  

having interest, wielding influence or purporting to  

represent those in authority based on the principles  

recognized by Rule 3(3)(ii)(iii) of the All India Service  

Conduct Rules, 1968 and as implicitly recognized by  

the Santhanam Committee Report, 1962 (Section 6,  

sub-para 33[iii].

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2. This  Court,  considering  the  importance  of  the  

matter, issued notice to various State Governments and  

the Union Territories so as to ascertain their views on the  

various  issues  raised  in  this  case.   Most  of  the  States  

have  filed  detailed  counter  affidavits  explaining  their  

stand with  regard to  the reliefs  prayed for  in  this  writ  

petition.   

3. Shri  K.K.  Venugopal,  learned  senior  counsel  

appearing for the writ petitioners, referred elaborately to  

the  above-mentioned  reports  and  highlighted  the  

necessity  of  the  creation  of  a  Civil  Service  Board  (for  

short ‘CSB’), both at the Centre and State level, with a  

degree  of  independence  so  that  it  can  make  

recommendations on all  transfers  and postings without  

sacrificing  the  executive  freedom  of  the  Government.  

Learned senior counsel pointed out that such CSB shall  

function  in  a  bare  advisory  capacity  and  its  

recommendations will not impose any constraint on the  

independence of the political authority to effect postings  

and  transfers,  including  premature  transfers.   Learned

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senior  counsel  also  highlighted  the  necessity  for  

providing  a  fixed  tenure  for  civil  servants  ensuring  

stability  which  is  highly  necessary  for  implementing  

various programmes which will have social and economic  

impact  on  the  society.   Learned  senior  counsel  also  

highlighted  the  reasons  for  recoding  of  instructions,  

directions and orders by the civil  servants so that they  

can function independently and the possibility of arbitrary  

and illegal decisions could be avoided.   

4. Mr.  Paras  Kuhad,  learned  ASG  appearing  for  the  

Union of India, opposed in principle prayer for setting up  

of independent CSB at the Centre and the State levels,  

which, according to the learned ASG, would be interfering  

with  the  governmental  functions.    Learned  ASG  also  

submitted that any mechanism within the governmental  

structure  could  be  thought  of,  but  involvement  of  any  

person, howsoever high he may be, who is not part of the  

Centre or the State Government, would not be advisable,  

especially  in  the  absence of  any such provision  in  the  

Constitution or the laws made by Centre and the State  

Governments.   Learned ASG also submitted that based

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on the  2nd Administrative  Reforms Committee  (ARC),  a  

draft Bill  entitled “Civil  Services Performance Standards  

and Accountability Bill, 2010” was provided incorporating  

certain  recommendations  in  the  above-mentioned  

reports.    Further,  it  was  pointed  out  that  the  draft  

Cabinet Note for the introduction of the said Bill  in the  

Parliament  is  under  consideration  of  the  Central  

Government.   Further,  it  was  also  submitted  that  for  

fixing the minimum tenures of cadre post in the Indian  

Administrative Service was initiated in November, 2006  

by  the  Department  of  Personnel  &  Training.   Cadre  

controlling  authorities  of  the  Indian  Police  Service  and  

Indian  Foreign  Service  were  also  requested  to  take  

necessary  follow-up  action  for  fixing  the  minimum  

tenures in the cadre post for the Indian Police Service and  

Indian  Foreign  Service.    During  the  process  of  

consultation,  it  was  pointed  out  that  comments  of  the  

State Governments were sought on the proposal of fixing  

minimum  tenure  of  posting  of  IAS  Officers.   13  State  

Governments  agreed  with  the  proposal,  while  some  

States did not agree.  The matter was further discussed in

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the meeting with the Chief Secretary/Principal Secretaries  

of  the  States  concerned  on  31.5.2007  and  again  on  

4.7.2008 in Delhi.    Notification providing for two years  

minimum tenure for IAS posting having been issued for  

13  States/Joint  Cadres.   Reference  was  also  made  to  

study  report  of  “Centre  for  Good  Governance”,  

Hyderabad  and  it  was  stated  that  the  same  is  under  

consideration with the Central Government.  With regard  

to the prayer for recording of instructions/directions, etc.,  

it  was  pointed  out  that  the  requirements  are  provided  

under the All India Service Conduct Rules.   

5. Learned  counsels  appearing  for  the  State  

Governments and the Union Territories have also placed  

their  stand  on  various  reliefs  sought  for  in  this  writ  

petition.   Learned  Standing  counsel  appearing  for  the  

State  of  Uttar  Pradesh  submitted  that  the  State  has  

already established Civil Service Boards in terms of the  

Government  orders  dated  24.12.2001  and  19.5.2007,  

which  is  meant  to  operate  with  respect  to  IAS  and  

Provisional  Civil  Services,  Indian  Police  Services  and

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Provisional Police Services and for Indian Forest Services  

and their feeder services.   Over and above, the State has  

also  formulated  transfer  policy  dated  15.5.2008.  

Learned counsel appearing for the State of Maharashtra  

also  made  reference  to  the  Maharashtra  Government  

Servants  Regulations  of  Transfers  and  Prevention  of  

Delay  in  Discharge  of  Official  Duties  Act,  2005  and  

submitted  that  the  Act  provided  for  transfer  of  

Government  servants  and  prevention  of  delay  in  

discharge of official duties.    

6. Reliefs prayed for in this writ petition are based on  

the  Hotta  Committee  Report,  2004,  2nd Administrative  

Reforms  Commission  (10th Report),  2008.  2nd  

Administrative  Service  Commission  (15th Report),  the  

Report  of  the  Committee  on  Prevention  of  Corruption,  

Santhanam  Committee  Report,  etc.    We  have  gone  

through those reports in detail.

A.   CIVIL SERVICE BOARD (CSB):   

7. The  Government  of  India  on  3rd February,  2004,  

appointed  the  Hota  Committee  to  examine  the  whole

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gamut of Civil Service reforms and the terms of reference  

of the Committee were as follows :-

“(i) Making the Civil Service  • responsive and citizen-friendly;  • transparent;  • accountable; and  • ethical    in its (a) actions and (b) interface with the    people,  

(ii) Making  the  civil  service  e-governance  friendly.

(iii) Putting a premium on intellectual growth of  civil  servants  and  on  upgrading  their  domain knowledge,  

(iv) Protecting the civil service against wrongful  pressure exerted by  

(a) administrative superiors;  (b) political executive;  (c) business interests; and  (d) other vested interests.  

(v) Changes, if any necessary, in the various All  India Services Rules and Central Civil Rules  to provide a statutory cover to the proposed  civil service reforms.  

(vi) Changes in rules governing the disciplinary  proceedings  against  civil  servants  to  decentralize  the  process  as  far  as  practicable,  and  to  make  the  disposal  of  such proceedings time-bound.  

(vii) Any other  matter that  the Committee may  consider  relevant  to  the  subject  of  civil  service reforms.”

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8. On establishment of Indian Civil Services Board, the  

Hota Committee made the following recommendations :-

“5.09 We found that some States complied with  the  recommendations  of  the  Conference  of  Chief  Ministers  and  set  up  Civil  Services  Boards/Establishment  Boards  with  Chief  Secretary  of  the  State  as  the  Chairman  and  other senior officials of the State as Members.  But  the  Boards  set  up  by  executive  order  in  different  States  have  failed  to  inspire  confidence as more often than not, they have  merely  formalized  the  wishes  of  their  Chief  Ministers in matters of transfer of officials. We  are firmly of the view that a Civil Services Act  has to be enacted to make the Civil  Services  Board / Establishment Board both in the States  and  in  the  Government  of  India  statutory  in  character.  In  the  proposed  set  up  in  the  Government  of  India,  the  Appointments  Committee  of  the  Cabinet  will  be  the  final  authority  for  transfer  of  officers  under  the  Central Staffing Scheme. The same principle of  fixed tenure should apply to senior officers, who  are not under the Central Staffing Scheme, but  are working under the Government of India for  which  the  Departmental  Minister  in  charge  is  the  final  authority  for  transfer.  The  Chief  Minister will be the final authority for transfer of  all  Group 'A'  officers of State Service and AIS  officers serving in connection with affairs of the  State.  If  a  Chief  Minister  does not  agree with  the  recommendations  of  the  Civil  Services  Board/  Establishment  Board,  he  will  have  to  record  his  reasons  in  writing.  An  officer  transferred  before  his  normal  tenure  even  under orders of the Chief Minister can agitate  the  matter  before  a  three-member

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Ombudsman.  The  Chairperson  of  the  Ombudsman will be a retired official of proven  honesty and integrity. The other two members  can be on part-time basis from among serving  officers.  In  all  such  premature  transfers  the  Ombudsman  shall  send  a  report  to  the  Governor of the State, who shall cause it to be  laid  in  an  Annual  Report  before  the  State  Legislature.  The  Ombudsman  may  also  pay  damages  to  the  officer  so  transferred  to  compensate  him  for  dislocation  and  mental  agony  caused  due  to  such  transfer.  We  are  conscious  that  we  are  recommending  a  statutory barrier to frequent transfer of senior  officials but the matter has come to such a pass  that  it  requires  a  statutory  remedy.  We  also  clarify  that  the  Chief  Minister  as  the  highest  political executive has the final powers to order  transfer of an officer before his tenure is over.  

5.10 We are also of the opinion that postings of  all Group 'B' officers must be done by the Head  of  the  Department  in  a  State  and  the  same  tenure rule shall be given a statutory backing.  We were advised by some witnesses that only  the Chief  Minister's  orders  for  transfer  should  be taken in case of Group 'A' officers / officers  of All India Services and no Minister of a State  should have any powers to order a transfer or  approve a proposal  for  transfer of any official  either of any State Service or of the All  India  Service.  We  agree  with  the  view,  as  in  our  opinion owing to reasons of political expediency  or even due to unwholesome reasons, Ministers  in States often are not able to make proper use  of the power vested in them for transfer of their  departmental officers. If a Minister has cogent  reasons to ask for transfer of an official before  he completes his tenure, he will move the Civil  Services Board to be set up under the new Civil  Services Act and the Civil Services Board, with

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its views on report of inquiry by a designated  officer,  shall  submit  the  case  to  the  Chief  Minister  for  final  orders.  Thus  in  a  State  Government,  a Minister's  proposal for transfer  of  any  officer  of  Group  'A'/Group  'B'  will  be  formally  decided  by  the  Chief  Minister  of  the  State.  

5.11 In our opinion, Civil Services Boards must  be set up in all States on similar lines as at the  Centre. The Central Act should have a provision  to enable the States to adopt the law and make  it  applicable  in  the  States,  without  going  through the long process of drafting a new law  and  getting  it  passed  in  the  Legislature.  The  Civil Services Board in a State - chaired by the  Chief Secretary and comprising senior officers -  shall perform the functions relating to transfer,  empanelment,  promotion,  and  deputation  of  officers performed by the Establishment Board  of  Government  of  India/Special  Committee  of  Secretaries  of  Government  of  India,  both  of  which  are  chaired  by  the  Cabinet  Secretary.  Under  Article  309  of  the  Constitution,  Parliament may also enact a Civil Services Act  setting up a Civil Services Board for the Union  Government  which  will  perform  the  functions  being  performed  at  present  by  the  Establishment  Board  presided  over  by  the  Cabinet Secretary.  The Civil  Services Act may  also  provide  for  a  Special  Committee  of  Secretaries  to  prepare  panel  of  names  for  appointment for posts of Additional Secretaries  and Secretaries to Government of India. Under  the  new  Civil  Services  Act,  a  Cabinet  Minister/Minister  of  State  with  independent  charge in Government of India may be given a  time limit to accept/send back proposals for the  Establishment  Board  regarding  posting  of  officers with his observations. In any particular  case, if the Establishment Board after giving the

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views  of  the  Minister  in  charge  its  utmost  consideration  does  not  change  its  original  recommendation,  the  Cabinet  Secretary  may  send proposals of the Establishment Board with  observations of the Minister in charge through  the Home Minister, a Member of the ACC to the  Prime Minister, who heads the ACC for a final  decision.  

5.12 Inter alia, a Civil Services Board of a State  shall  also perform functions of  recommending  officers of All India Service/Group 'A1 service of  the State for  transfer to different posts under  the  State Government.  It  would  be expedient  before an officer is sought to be transferred in  the public interest when he has not completed  his tenure, that an administrative inquiry of a  summary  nature  is  held  to  ascertain  if  the  transfer is justified as a matter of public policy.  The administrative inquiry will be conducted as  expeditiously  as  possible  by  a  designated  officer nominated by the Civil Services Board. In  appropriate cases, the Civil Services Board may  also direct the officer to proceed on leave on  full  pay and allowances till  the administrative  inquiry is over and a decision is taken regarding  his transfer. The designated officer to conduct  the  inquiry  will  be  ordinarily  the  Reporting  Officer of the officer sought to be transferred.  The Civil Services Board on receipt of the report  of inquiry of the designated officer shall advise  the  Chief  Minister  regarding  justification  for  transfer  of  the  officer  in  the  public  interest  before his normal tenure is over. Ordinarily the  Chief  Minister  is  expected  to  agree  with  the  recommendations of the Civil Services Board as  transfer of an official is a routine administrative  matter  on  which  a  Civil  Services  Board  must  have a decisive role.  But if  the Chief Minister  does  not  agree  with  the  Civil  Services  Board  and  orders  transfer  of  an  official  before  his

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tenure is over, he may have to record in writing  reasons  for  such  transfer.  If  the  official  is  transferred before his tenure without adequate  justification, he will have the right to approach  a three member Civil Service Ombudsman set  up for the purpose.  

Recommendation 38:  In the proposed Civil  Service law, the highest political executive shall  continue  to  be  the  final  authority  to  order  transfer of any officer before his tenure is over;  but  he  will  be  expected  to  give  due  consideration  to  Report  of  the  Administrative  Inquiry/views  of  the  Civil  Service  Board/Establishment Board and record reasons  on the need for premature transfer of an officer.  It is reiterated that the political executive shall  have the final authority to transfer an officer at  any  stage  in  the  public  interest.  An  officer  aggrieved by order  of  premature transfer  can  agitate  the  matter  before  a  three-Member  Ombudsman, who may, where suitable, award  monetary  compensation  to  the  aggrieved  officer. The constitution of the Ombudsman will  be the same as the Ombudsman proposed for  the Disputes Redressal Council as at para 6.19  of  this  Report.  The  President/Governor  shall  receive reports from the Ombudsman and shall  lay an Annual Report on such transfers on the  table  of  the  Legislature.  There  should  be  a  suitable provision in the law to enable States to  adopt  it  and make it  applicable  in  the States  without  going  through  the  long  process  of  drafting  a  law  and  get  it  passed  in  the  Legislature.        {para  5.03 to  5.10)”  

9. The 2nd Administrative Reforms Commission was set  

up by the President reflecting the Resolution dated 31st

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August,  2005 passed by the Government of India.   The  

Commission was set up to suggest measures to achieve a  

preemptive  responsible,  accountable,  sustainable  and  

effective administration for the country at all levels of the  

government.  The tenure of the Committee was extended  

from time to time and the Committee submitted its report  

in the year 2008.  On the question of the setting up of the  

independent CSB, the Committee has made the following  

recommendations :

“9.7.1  The  Commission  suggests  that  an  independent  ‘Authority’  should  deal  with  matters  of  assignment  of  domains,  preparing  panels for posting of officers at the level of SAG  and  above,  fixing  tenures  for  various  posts,  deciding on posts which could be advertised for  lateral  entry  etc.  As  this  Authority  would  be  performing the above-mentioned crucial tasks,  it  would  be  necessary  to  ensure  its  independence by giving it  a statutory backing  and stipulating that it should be headed by an  eminent person with experience of public affairs  to  be  appointed  by  the  Prime  Minister  in  consultation with the Leader of the Opposition  in the Lok Sabha. The Authority should have a  full  time  Member-Secretary  of  the  rank  of  Secretary to Government of India, and persons  of eminence in public life and professionals with  acknowledged  contributions  to  society  as  Members of the Authority. This Authority, to be  named as the Central Civil  Services Authority,  should be constituted under the proposed Civil

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Services Act. As the constitution of the Central  Civil  Services Authority under a new law may  take  some  time,  the  said  Authority  may  be  constituted, initially, under executive orders.”

10. Para  9.8.e  also  refers  to  the  composition  of  the  

Committee which reads as follows :-

“9.8.e. A Central Civil Services Authority should  be  constituted  under  the  proposed  Civil  Services  Bill.  The  Central  Civil  Services  Authority  shall  be  a  five-member  body  consisting  of  the  Chairperson  and  four  members  (including  the  member-secretary).  The Authority should have a full time Member- Secretary  of  the  rank  of  Secretary  to  Government  of  India.  The  Chairperson  and  members of the Authority should be persons of  eminence in public life and professionals with  acknowledged  contributions  to  society.  The  Chairperson  and  members  of  the  Authority  shall  be  appointed  by  the  President  on  the  recommendations of a Committee consisting of  the  Prime  Minister  and  the  Leader  of  the  Opposition in the Lok Sabha.  

(Explanation:-  Where  the  Leader  of  the  Opposition  in  the  Lok  Sabha  has  not  been  recognized as  such,  the Leader  of  the  single  largest  group  in  the  Opposition  in  the  Lok  Sabha shall be deemed to be the Leader of the  Opposition).”  

11. The  Second  Administrative  Reforms  Commission  

Fifteenth  Report  (April  2009)  has  also  made  various  

suggestions  in order  to  provide  legislative  backing  to  

these  measures,  the  Commission  has  recommended

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enactment  of  a  Civil  Services  Law which  will  cover  all  

personnel  holding  civil  posts  under  the  Union.    The  

Commission  recommended  for  the  constitution  of  a  

Central Civil Service Authority, among other things, which  

reads as follows:

“VIII.   Constitution  of  the  Central  Civil  Services Authority:

i. The  Central  Government  shall,  by  notification  in  the  Official  Gazette,  constitute  a  body  to  be  known  as  the  Central Civil Services Authority to exercise  the powers conferred on, and to perform  the  functions  assigned  to  it,  under  this  Act.

ii. The Central Civil  Services Authority shall  be a five-member body consisting of the  Chairperson and four members (including  the  member-secretary).  The  Authority  should have a full time Member- Secretary  of the rank of Secretary to Government of  India.  The  Chairperson  and  members  of  the  Authority  should  be  persons  of  eminence in public life and professionals  with  acknowledged  contributions  to  society. The Chairperson and members of  the  Authority  shall  be  appointed  by  the  President  on  the  recommendations  of  a  Committee  consisting  of  the  Prime  Minister and the Leader of the Opposition  in the Lok Sabha.  

(Explanation:-  Where  the  Leader  of  the  Opposition  in  the  Lok  Sabha  has  not  been

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recognized as  such,  the Leader  of  the  single  largest  group  in  the  opposition  in  the  Lok  Sabha shall be deemed to be the Leader of the  Opposition).

2.4.2.5  Subsequently,  in  its  Report  on  “Refurbishing of Personnel Administration” (the  Tenth  Report),  the  Commission  suggested  a  detailed procedure for placement of officers at  the  middle  and  top  management  levels  in  the  Union Government. It calls for the constitution  of  a  Central  Civil  Service  Authority  by  law,  which  will  be  an  independent  five  member  body  consisting  of  persons  of  eminence  in  public life and professionals with acknowledged  contributions to Society. This Authority will be  empowered  to  deal  with  a  large  number  of  issues  concerning  civil  services  such  as  assignment  of  domain  to  officers,  preparing  panels  for  posting  at  the  levels  of  Joint  Secretary and above, fixing tenures for senior  assignments and such other matters that may  be referred to it by the Union Government. The  Commission is of the view that there should be  a  similar  Civil  Services  law and a  State  Civil  Services Authority for each State. The mandate  and functions of the State Body would largely  coincide  with  those  prescribed  under  the  proposed  Union  Civil  Services  Law.  This  Authority  should  deal  with  issues  of  appointment and tenure of higher officials of all  ranks in the State Governments including the  Chief  Secretary,  Principal  Secretaries,  Engineer-in-Chiefs  and  the  Principal  Chief  Conservator of Forests. However, till  the time  the proposed law is enacted and the State Civil  Service  Authority  is  constituted,  recommendations made at para 2.14.2.5 above

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may be immediately adopted by all the State  Governments.  

2.4.2.6  Recommendations:

a) After enactment of the State Civil Services  Law on the lines  of  the proposed Union  enactment,  the  proposed  State  Civil  Service Authority should deal with matters  concerning  appointment  and  tenure  of  senior  officers  of  all  ranks  in  the  State  Governments  (including  the  Chief  Secretary, Principal Secretaries, Engineer- in-Chiefs,  other  Agency  Heads  and  Principal Chief Conservator of Forests).

b) Till  the  time  that  such  an  Authority  is  constituted, the following mechanism may  be adopted for appointment of the Chief  Secretary  and  Principal  Conservator  of  Forests in the States:-

•   There  should  be  a  collegiums  to  recommend a panel of names to the  Chief Minister/Cabinet for these two  posts.  For  the  post  of  Chief  Secretary, this collegium may consist  of  (a)  a  Minister  nominated  by  the  Chief Minister, (b) the Leader of the  Opposition  in  the  State  Legislative  Assembly  and  (c)  the  incumbent  Chief Secretary. For the selection to  the  post  of  Principal  Chief  Conservator  of  Forests  the  collegiums  may  consist  of  (a)  The  Minister In-charge of Forests, (b) the  leader  of  Opposition  in  the  State  Legislative  Assembly  and  (c)  the  Chief Secretary.

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• There  should  be  a  fixed  tenure  of  atleast  two  years  for  both  these  posts.

• The  selection  for  the  post  of  Chief  Secretary  and  Principal  Chief  Conservator  of  Forests  should  be  widened to include all officers above  a specified seniority (e.g. 30 years).  All  officers  with  a  eniority  higher  than  a  prescribed  limit  should  be  eligible to be a part of the panel.

c) As regards the appointment and tenure of  the  Director  General  of  Police,  the  recommendations  made  by  the  Commission  in  its  Report  on  “Public  Order”  at  para  5.2.3.7  should  be  implemented.”

12. We have elaborately referred to the Report of the  

Hota  Committee,  Report  of  the  2nd Administrative  

Commission, 2008-2009, which highlighted the necessity  

of creation of an independent CSB at the Centre as well  

as the State level.   

B.   FIXED TENURE:   

13. Various  Committees  have  also  recommended  and  

highlighted the necessity of providing fixed tenure for a  

civil  servant so  as  to  ensure stability  and efficiency of

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administration.   The  Central  Staffing  Scheme,  1996,  

highlighted  the  necessity  of  a  fixed  tenure  to  provide  

certain  degree  of  stability  to  the  administration.  

Reference in this regard may be made to paras 17.01,  

17.02,  17.03,  17.12  and  17.13  and  the  same  are  

extracted hereinbelow for easy reference :

“17.01  The  fixed  tenure  of  deputation  of  posting under the Central  Government  is  the  heart of the Central Staffing Scheme. Rotation  between  the  Centre  and  the  States,  Central  Ministries and parent cadres, and headquarters  and  the  field,  provide  a  certain  degree  of  pragmatism  to  policy  formulation  and  programme  implementation  from  the  Central  Ministries. Based on the experience gained so  far, the periods of tenure at the different levels  have been prescribed as under:-  

i Under Secretary 3 years  

ii Deputy Secretary 4 years  

iii. Director 5 years  

iv. Joint Secretary 5 years  

17.02  An  officer  holding  the  post  of  Joint  Secretary or equivalent,  when appointed to a  post under the Government of India at the level  of Additional Secretary, would have a tenure of  3  years  from  the  date  of  appointment  as  Additional Secretary subject to a minimum of 5  years  and maximum of  7  years  of  combined  tenure as Joint Secretary.

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Additional Secretary. Where an officer remains  on leave (either  from the Centre or  from his  Cadre authority or  both) on the expiry of his  tenure as Joint Secretary till his appointment as  Additional Secretary, the leave period shall be  counted  as  tenure  deputation.  Additional  Secretary  4  years,  except  for  cases  covered  under the previous heading.  

Secretary No fixed tenure.  

17.03 Every officer shall  revert at the end of  his  tenure  as  indicated  above  on  the  exact  date  of  his  completing  his  tenure.  He  will,  however, have a choice to revert to his cadre  on the 31st  May previous to the date of  the  end  of  his  tenure  in  case  personal  grounds  such as children's  education etc.,  necessitate  such reversion. No extension after completion  of the full tenure would be allowed.  

17.12 (a) Officers of the Indian Foreign Service  appointed to posts under the Central Staffing  Scheme would have a tenure of three years.  

(b) They shall not normally be relieved, except  with  the  approval  of  the  appointments  Committee  of  the  Cabinet  from  a  Central  Staffing Scheme post before their tenure.  

17.13   No lateral  shifts of  officers from one  Ministry/I)eptt.  to  another  will  normally  be  considered.  However,  in  the  case  of  Private  Secretary  to  Ministers  the  policy  followed  would be :-  (a) The redeployment of a Private Secretary in  the same Ministry/Department as Deputy  Secretary or Director is discouraged.  

(b) The  Private  Secretary  (to  Minister)  who  has been empanelled for holding post of Joint

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Secretary  at  the  Centre  should  also  not  be  considered  for  relocation  in  the  same  Ministry/Deptt.  and  the  officer  should  be  posted to some other Ministry/Deptt.”

14. The  2nd Administrative  Reforms  Commission  (10th  

Report) also speaks of the same in paras 8.5.11, 8.5.12,  

8.5.14, 8.7 (e)- (g), 9.8(e)-(g) and 17.5(VIII) and the same  

are extracted hereinbelow for easy reference :

“8.5.11.  There appears to be unanimity on the  point that it is necessary to give a fixed tenure  to a civil  servant in his/her post. In fact, the  Draft Public Services Bill, 2007 has stipulated  in Clause 16(e) that  

“The  Central  Government  shall  fix  a  minimum  tenure  for  cadre  posts,  which  may  be  filled  on  the  basis  of  merit,  suitability and experience.”

8.5.12 In Clause 22, the Bill enjoins the Cadre  Controlling Authorities to

“notify within a period of six months from  the coming into force of this Act,  norms  and guidelines for transfers and postings  to maintain continuity and predictability in  career  advancement  and  acquisition  of  necessary skills  and experiences as well  as  promotion  of  good  governance.  Transfers  before  the  specified  tenure  should be for valid reasons to be recorded  in  writing.  Provided  that  the  normal  tenure of all public servants shall not be  less than two years.”

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8.5.14 The Commission is of the view that the  Central  Civil  Services  Authority  (discussed  in  detail in Chapter 9) should be charged with the  responsibility  of  fixing the  tenure for  all  civil  service posts under the Union Government. At  present,  the  functions  of  the  Authority  are  envisaged as advisory under the provisions of  the Draft Public Services Bill, 2007. This needs  to  be changed,  and so  far  as  the fixation of  tenure is  concerned,  it  is  suggested that  the  decision of the Authority should be binding on  the Government. The Authority should also be  given  the  responsibility  to  monitor  postings  and  place  before  Parliament  a  periodic  evaluation  of  the  actual  average  tenure  for  each post and for the Central Government as a  whole.  Establishment  of  State  Civil  Service  Authorities  for  the  States  with  similar  responsibilities needs to be urgently taken up  by the State Governments where tenures are  much less stable. The details of the State Civil  Services Authorities would be examined by the  Commission  in  its  Report  on  ‘State  Administration’.

8.7  (e)  –  (g)  Placement  at  Middle  Management Level

[…….]

e. The Central Civil Services Authority should  be  charged  with  the  responsibility  of  fixing tenure for all civil service positions  and this decision of the Authority should  be binding on Government.

f. Officers  from  the  organized  services  should  not  be  given  ‘non-field’  assignments in the first 8-10 years of their  career.

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g. State Governments should take steps to  constitute State Civil Services Authorities  on the lines of the Central Civil  Services  Authority.

9.8 (e) – (g) Placement at Top Management  Level  

[……]

e. A Central Civil Services Authority should be  constituted under the proposed Civil  Services  Bill.  The Central  Civil  Services Authority shall  be  a  five-member  body  consisting  of  the  Chairperson and four members (including the  member-secretary). The Authority should have  a  full  time  Member-Secretary  of  the  rank  of  Secretary  to  Government  of  India.  The  Chairperson  and  members  of  the  Authority  should  be  persons  of  eminence in  public  life  and  professionals  with  acknowledged  contributions to society.  The Chairperson and  members  of  the Authority  shall  be appointed  by the President on the recommendations of a  Committee consisting of the Prime Minister and  the Leader of the Opposition in the Lok Sabha.  

(Explanation:-  Where  the  Leader  of  the  Opposition  in  the  Lok  Sabha  has  not  been  recognized as  such,  the Leader  of  the  single  largest  group  in  the  Opposition  in  the  Lok  Sabha shall be deemed to be the Leader of the  Opposition).  f.  The Central Civil Services Authority should  deal with matters of assignment of domains to  officers, preparing panels for posting of officers  at the level of Joint Secretary and above, fixing  tenures  for  senior  posts,  deciding  on  posts  which could be advertised for lateral entry and  such other matters that may be referred to it  by the Government.

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g. A similar procedure should be adopted for  filling up vacancies at SAG level and higher in  the central police agencies. For example, in the  Central  Para-Military  Forces  the  senior  positions  should  be  opened  to  competition  from officers of the CPMFs, IPS and the Armed  Forces (including those completing their Short  Service  Commissions).  Similarly  for  the  intelligence agencies officers  from the armed  forces as well as the CPOs with experience in  the field of  intelligence should be considered  for postings at higher levels in the intelligence  agencies.

17.5  Recommendations  

“A new Civil Services Bill may be drafted. The  following salient  features may be included in  the proposed Bill.

[…….]

VIII. Fixation  of  Tenures  :  All  senior  posts  should  have a specified tenure.   The task of  fixing  tenures  for  various  posts  may  also  be  assigned to this independent agency – Central  Civil Services Authority.”

15. The  2nd Administrative  Reforms  Commission  (15th  

Report), 2009 also speaks of the same in paras 2.4.1.2  

and 2.4.2.4 and the same is extracted below for ready  

reference:-

“2.4.1.2  In order to provide legislative backing  to  these  measures,  the  Commission  has  recommended  enactment  of  a  Civil  Services  Law which will cover all personnel holding civil

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posts  under  the Union.   As  recommended at  paragraph  17.5  of  this  Report,  the  proposed  law has the following salient features :

[…..]

V.  Fixation  of  Tenure.   All  senior  psots  should  have a specified tenure.   The task of  fixing  tenures  for  various  posts  may  also  be  assigned to this independent agency – Central  Civil Services Authority”.

[…..]

IX. Functions  of  the  Central  Civil  Services  Authority.   The  Central  Authority  shall discharge the following functions :

[…..]

vi. Fix  the  tenure  for  posts  at  the  ‘Senior  Management Level’ in Government of India.

2.4.2.4  For  appointments  to  the posts  of  the  Chief Secretary and the Principal Conservator  of Forest,  the Commission communicated the  following  interim  suggestions  to  the  Government in December 2007:-

i) There  should  be  a  collegium  to  recommend  a  panel  of  names  to  the  Chief  Minister/ Cabinet for these two posts. For the  post  of  Chief  Secretary,  this  collegiums  may  consist of  

(a) a Minister nominated by the Chief Minister,  

(b) the  Leader  of  the  Opposition  in  the  State  Legislative Assembly and

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(c)  the  incumbent  Chief  Secretary.  For  the  selection  to  the  post  of  Principal  Chief  Conservator  of  Forests  the  collegiums  may  consist of  

(a)The Minister In-charge of Forests,  

(b) the leader of Opposition in the State  Legislative       Assembly and  

(c) the Chief Secretary.

ii) There should be a fixed tenure of two years for  both these posts.

iii) The selection  for  the  post  of  Chief  Secretary  and Principal Chief Conservator of Forests should be  widened  to  include  all  officers  above  a  specified  seniority  (e.g.  30 years).  All  officers  with seniority  higher than a prescribed limit should be eligible to  be a part of the panel.”

16. The Hota Committee Report, 2004 also highlights the  

same as its main Recommendation No.39 which reads as  

follows :-

“(39).    The proposed comprehensive law  on  the  Civil  Services  shall  incorporate,  inter  alia, a Code of Ethics and a statutory minimum  tenure  in  a  post  to  an  officer.   Under  the  proposed  law,  if  an  officer  is  sought  to  be  transferred before his tenure, there would be  an  expeditious  administrative  inquiry  by  a  designated senior officer to be earmarked for  this purpose. This can be dispensed with if the  transfer  is  on  promotion/deputation/foreign  training.   In  all  other  cases,  the  Report  of

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Inquiry  with  the  views  of  the  Civil  Service  Board/Establishment Board would be put up to  the  Chief  Minister  if  officer  of  the  All  India  Services Service/other civil services work in the  States, or the Appointments Committee of the  Cabinet if the officers work under the Central  Staffing Scheme.   For the officers of the other  Central  Services  working  in  Ministries/Departments  but  not  under  the  Central  Staffing  Scheme,  the  new  law  will  prescribe  tenure  with  a  provision  for  administrative  inquiry  before  an  officer  is  sought  to  be  transferred  except  on  specified  grounds.”

C.  RECORDING OF INSTRUCTIONS AND DIRECTIONS:

17. Petitioners have highlighted the serious predicant on  

which the civil servants are placed when they are asked  

to implement governmental decisions, on oral directions,  

suggestions, instructions etc.  Much of the deterioration  

of the standards of probity and accountability, according  

to the Petitioners, can be traced to practice of issuing and  

acting on verbal instructions or oral orders which are not  

recorded.  This issue was addressed by the Santhanam  

Committee way back in 1962.  Paragraphs 6.20 and 6.21  

deal with those aspects, which are given below for easy  

reference :

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“6.20.   We  have  already  mentioned  the  existence  of   ‘contactmen’  and  ‘touts’.  Obviously  these  do  not  include  genuine  representatives  of  commercial  and  industrial  firms.   In  this  regard  our  recommendations  are :-

(i) No official should have any dealings with a  person  claiming  to  act  on  behalf  of  a  business  or  industrial  house  or  an  individual, unless he is properly accredited,  and is  approved by the Department,  etc.  concerned.  Such a procedure will keep out  persons  with  unsavoury  antecedents  or  reputation. There should, of course, be no  restriction  on  the  proprietor  or  manager  etc.  of  the  firm  or  the  applicant  himself  approaching the authorities.

(ii) Even  the  accredited  representatives  should not be allowed to see officers below  a specified level – the level being specified  in  each  organization  after  taking  into  consideration  the  functions  of  the  organizations,  the  volume  and  nature  of  the  work  to  be  attended  to,  and  the  structure  of  the  organization.   However,  care should be taken to limit  permissible  contacts to levels at which the chances of  corruption are considered to be small. This  would often mean that  no contact  would  be  permitted  at  the  level  of  subordinate  officers.   

(iii) There should be some system of keeping  some  sort  of  record  of  all  interviews  granted to accredited representatives.

(iv) There  should  be  a  fairly  senior  officer  designated  in  each  Department  to  which

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an  applicant  etc.,  may  go  if  his  case  is  being unreasonably delayed.

It  is  necessary that a proper  procedure should be  devised  in  consultation  with  the  Central  Vigilance  Commission  for  accrediting  and  approval  by  the  department.   Before  granting  approval  the  antecedents  of  the  person  proposed  to  be  accredited  should,  if  possible,  be  verified.  In  any  case no person who is not definitely employed by an  established undertaking who will be responsible for  his contact and actions should be approved.

6.21.  It is also desirable that officers belonging  to prescribed categories who have to deal with  these representatives should maintain a regular  diary of all interviews and discussions with the  registered  representatives  whether  it  takes  place  in  the  office  or  at  home.  The  general  practice should be that such interviews should  be in the office and if it takes place at home,  reasons should be recorded.   Any business or  discussion which is not so recorded should be  deemed  to  be  irregular  conduct,  of  which  serious notice should be taken by the superiors.

18. Further,  we  also  notice  the  All  India  Services  

(Conduct)  Rules,  1968,  which  also  states  that  the  

directions of  the officials  superior  shall  ordinarily  be in  

writing.  Rule 3(3) of the above-mentioned Rules reads as  

follows :-

3(3) (i) No member of the Service shall, in the  performance  of  his  official  duties,  or  in  the  exercise  of  powers  conferred  on  him,  act  otherwise

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than in his own best judgment to be true and  correct  except  when  he  is  acting  under  the  direction of his official superior.  

(ii)  The  direction  of  the  official  superior  shall  ordinarily be in writing. Where the issue of oral  direction  becomes  unavoidable,  the  official  superior shall  confirm it  in writing immediately  thereafter.  

(iii) A member of the Service who has received  oral direction from his official superior shall seek  confirmation of the same in writing, as early as  possible and in such case, it shall be the duty of  the official  superior  to  confirm the direction in  writing.  

Explanation  I–  A  member  of  the  Service  who  habitually fails to perform a task assigned to him  within the time set for the purpose and with the  quality of performance expected of him shall be  deemed to be lacking in devotion to duty within  the meaning of the sub-rule (1);

Explanation II – Nothing in clause (i) of sub-rule  (3)  shall  be  construed  as  empowering  a  Government servant to evade his responsibilities  by  seeking  instructions  from or  approval  of,  a  superior  officer  or  authority  when  such  instructions are not necessary under the scheme  of distribution of powers and responsibilities.”

19. We, in this respect, point out that the response of  

certain  States  and  Union  Territories  in  the  matter  of  

creation  of  an  independent  CSB,  fixed  tenure  of  civil  

servants  and  recording  of  directions,  are  neither

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consistent  nor  positive.  But  generally,  they  have  

welcomed the suggestion for fixation of tenure subject to  

the rider that in certain exceptional circumstances,  the  

State Governments should have the power to transfer a  

person prematurely before completion of the tenure.  Few  

States  have  welcomed  the  suggestion  that  every  Civil  

Servant should record all the instructions and directions  

received.  

20. Union and the State Governments apprehend that  

creation  of  an  independent  CSB  or  institutional  

arrangement  for  regulating  transfers  and  postings  of  

officers would be an intrusion into the executive function  

of  the  Centre  and  State  Governments  headed  by  the  

political  executives, who are directly responsible to the  

people.  Further, they have also taken up a stand that the  

said  arrangement  would  lead to  a  dual  line of  control,  

creating  complexities  in  managing  administrative  

functions and affecting efficiency of civil servants.  With

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regard to frequent transfers of officers, they have taken  

up the stand that there is already a clear cut policy that  

except in cases of promotion, in the interest of work and  

administrative reasons, transfer and posting will be done  

only  after  completion  of  three  years  of  tenure.   Few  

States have issued directions, to get written directions in  

case  of  oral  directions  of  Superior  Officers  in  line with  

Rule  3(3)(ii)-(iii)  of  All  India  Services  (Conduct)  Rules,  

1968.    

21. Chapter XIV of the Constitution of India deals with  

services  under  the  Union  and  the  States.   Article  309  

deals with the recruitment and conditions of service of  

persons serving the Union or the State, which expressly  

made subject to the other provision of the Constitution of  

India,  In  terms  of  Article  309  appropriate  Legislature,  

Parliament  or  the  State  Legislature  is  empowered  to  

legislate,  to  regulate the recruitment and conditions of  

service of persons appointed to public services and post  

them in connection with the affairs of the Union or of any  

State.  In terms of the proviso to Article 309, number of

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rules have been made from time to time by the Union  

and the State Governments and they govern and regulate  

the  public  services  in  India.   Article  310  of  the  

Constitution provides for all members of the civil services  

of the Union and All India Services to be held in civil post  

at the pleasure of the President and all members of the  

civil services of the State at the pleasure of the Governor  

of  the  State.   Article  311  provides  certain  safeguards  

regarding  dismissal,  removal  or  reduction  in  rank  of  

persons employed in civil capacity.  Article 312 provides  

constitution of All India Services.  Articles 318 to 333 deal  

with  the  Union  Public  Service  Commission  (UPSC)  and  

State  Public  Service  Commissions  (PSC).   Article  320  

stipulates that it shall be the duty of the Union and the  

State PSCs to conduct the examinations for appointment  

to the services of the Union and services of the State,  

respectively.   

22. UPSC or the State PSCs are to be consulted in all  

matters  relating  to  the  method  of  recruitment  to  civil  

services and on the principles to be followed in making

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appointments to civil  services and posts and in making  

promotions and transfers from one service to another.  Of  

late,  the  UPSCs  and  PSCs  are  being  denuded  of  their  

powers  of  consultation  while  making  promotions  and  

transfer  from one service to another.   Article  323 lays  

down that  it  shall  be the duty of  the UPSC to present  

annually to the President a report of the work done by the  

Commission and on receipt of such report the President  

shall  cause  a  copy  thereof  together  with  the  

memorandum,  explaining  as  regard  the  cases,  if  any,  

where advice of the Commission was not accepted, the  

reasons for  such non-acceptance,  to be laid before the  

House of Parliament.  Similar provision also exists for the  

State PSCs.  Article 323A authorizes Parliament to set up  

administrative tribunals regarding disputes with regard to  

recruitment and conditions of service, appointed to public  

services.   Parliament  in  exercise  of  its  powers  under  

Article 309 enacted the All India Service Act, 1951, which  

authorizes  Union  Government  in  consultation  with  the  

State Governments, to make rules for the regulations of

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conditions  of  service  of  persons  appointed  to  All  India  

Services.

23. Part  V  of  the  Constitution  deals  with  the  Union.  

Article 53 states that the executive power of the Union  

shall be vested in the President and shall be exercised by  

him either directly or through officers subordinate to him  

in  accordance  with  this  Constitution.   Article   154  of  

Chapter VI of the Constitution states that the executive  

power of the State shall be vested with the Governor and  

shall  be  exercisable  by  him  either  directly  or  through  

officers  subordinate  to  him  in  accordance  with  the  

Constitution.   Article 73 of  the Constitution states  that  

subject  to  the  provisions  of  the  Constitution  executive  

power of the Union shall extend to matters with respect  

to which Parliament has power to make laws and to the  

exercise  of  such  rights,  authority  and  jurisdiction,  as  

exercisable by the Government of India by virtue of any  

treaty or any agreement.  Article 163 of the Constitution  

states that there shall be a Council of Ministers, the Chief  

Minister as the head to aid and advice the Governor in

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exercise of his functions, except in so far as he is by or  

under this Constitution required to exercise his functions  

or any of them with his discretion.

24. The  above  are  the  constitutional  provisions  which  

generally  deal  with  the  power  of  the  executive.   The  

principles  governing  the  roles  and  responsibilities  of  

political  executive  and  civil  servants,  are  therefore,  

constitutionally defined and also based on the basis  of  

various rules framed by the President and Governor for  

the conduct of business in the Government.  Ministers are  

responsible to the people in a democracy because they  

are the elected representatives of the Parliament as well  

as the General State Assembly.  Civil servants have to be  

accountable,  of  course  to  their  political  executive  but  

they  have  to  function  under  the  Constitution,  

consequently they are also accountable to the people of  

this country.

25. Paragraph  15.1.3  of  the  report  of  the  2nd  

Administrative  Reforms  Committee  (2008)  reads  as  

follows:

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“A  healthy  working  relationship  between  Ministers  and  civil  servants  is  critical  for  good  governance.   While  the  principles  governing the roles and responsibilities of  Ministers  and  civil  servants  are  well  defined  in  political  theory,  in  the  actual  working of this relationship this division of  responsibility  becomes  blurred  with  both  sides  often encroaching upon the other’s  sphere  of  responsibility.   In  any  democracy,  Ministers  are  responsible  to  the  people  through  Parliament  and  therefore  the  civil  servants  have  to  be  accountable to the Minister.  However, an  impartial  civil  service  is  responsible  not  only to the government of the day but to  the Constitution of the land to which they  have taken an oath of loyalty.  At the same  time, implementing the policies of the duly  elected government is  a  core function of  civil servants.  That is why the division of  responsibility  between  the  civil  servants  and  ministers  needs  to  be  more  clearly  defined.   A  framework  in  which  responsibility  and  accountability  is  well  defined would be useful.”

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26. Civil servants, as already indicated, have to function  

in accordance with the Constitution and the laws made by  

the Parliament.  In the present political scenario, the role  

of civil servants has become very complex and onerous.  

Often  they  have  to  take  decisions  which  will  have  far  

reaching  consequences  in  the  economic  and  

technological fields.  Their decisions must be transparent  

and  must  be  in  public  interest.   They  should  be  fully  

accountable to the community they serve.  Many of the  

recommendations made by the Hota Committee, various  

reports  of  the  2nd Administrative  Reforms  Commission,  

2008  and  Santhanam  Committee  Report  have  high-

lighted various lacunae in the present system which calls  

for serious attention by the political executive as well as  

the law makers.

27. We  find  it,  however,  difficult  to  give  a  positive  

direction to constitute an independent CSB at the Centre  

and State Level,  without  executive control,  which Hota  

Committee has recommended to be statutory in nature,  

that  too,  comprising  of  persons  from  outside  the

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Government.   Petitioners placed considerable reliance on  

the  judgment  of  this  Court  in  Prakash  Singh  and  

Others v. Union of India (2006) 8 SCC 1 and urged that  

similar directions be given to insulate, to at least some  

extent,  the  civil  servants  from  political/executive  

interference.   Retired persons, howsoever eminent they  

may  be,  shall  not  guide  the  transfers  and  postings,  

disciplinary action, suspension, reinstatement, etc. of civil  

servants,  unless  supported  by  law  enacted  by  the  

Parliament or the State Legislature.   

28. CSB, consisting of high ranking in service officers,  

who  are  experts  in  their  respective  fields,  with  the  

Cabinet Secretary at the Centre and Chief Secretary at  

the  State  level,  could  be  a  better  alternative  (till  the  

Parliament enacts a law), to guide and advise the State  

Government  on  all  service  matters,  especially  on  

transfers,  postings  and disciplinary  action,  etc.,  though  

their  views  also  could  be  overruled,  by  the  political  

executive, but by recording reasons, which would ensure  

good governance,    transparency and accountability  in

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governmental  functions.   Parliament  can  also  under  

Article 309 of the Constitution enact a Civil Service Act,  

setting up a CSB, which can guide and advice the political  

executive transfer and postings, disciplinary action, etc.  

CSB  consisting  of  experts  in  various  fields  like  

administration, management, science, technology, could  

bring in more professionalism, expertise and efficiency in  

governmental functioning.   

29. We, therefore, direct the Centre, State Governments  

and the Union Territories to constitute such Boards with  

high ranking serving officers, who are specialists in their  

respective fields, within a period of three months, if not  

already constituted, till the Parliament brings in a proper  

legislation in setting up CSB.    

 30. We  notice,  at  present  the  civil  servants  are  not  

having  stability  of  tenure,  particularly  in  the  State  

Governments  where  transfers  and  postings  are  made  

frequently,  at  the  whims  and  fancies  of  the  executive  

head  for  political  and  other  considerations  and  not  in  

public  interest.   The necessity  of  minimum tenure  has

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been  endorsed  and  implemented  by  the  Union  

Government.  In fact,  we notice,  almost 13 States have  

accepted  the  necessity  of  a  minimum  tenure  for  civil  

servants.  Fixed minimum tenure would not only enable  

the  civil  servants  to  achieve their  professional  targets,  

but also help them to function as effective instruments of  

public policy. Repeated shuffling/transfer of the officers is  

deleterious  to  good  governance.   Minimum  assured  

service tenure ensures efficient service delivery and also  

increased  efficiency.   They  can  also  prioritize  various  

social and economic measures intended to implement for  

the poor and marginalized sections of the society.    

31. We, therefore, direct the Union State Governments  

and Union Territories to  issue appropriate directions to  

secure providing of minimum tenure of service to various  

civil servants, within a period of three months.   

32. We  have  extensively  referred  to  the  

recommendations  of  the  Hota  Committee,  2004  and  

Santhanam  Committee  Report  and  those  reports  have  

highlighted  the  necessity  of  recording  instructions  and

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directions by public servants.  We notice that much of the  

deterioration  of  the  standards  of  probity  and  

accountability with the civil servants is due to the political  

influence or persons purporting to represent those who  

are in authority. Santhanam Committee on Prevention of  

Corruption, 1962 has recommended that there should be  

a  system  of  keeping  some  sort  of  records  in  such  

situations.   Rule  3(3)(iii)  of  the  All  India  Service  Rules  

specifically requires that all orders from superior officers  

shall  ordinarily  be  in  writing.   Where  in  exceptional  

circumstances, action has to be taken on the basis of oral  

directions,  it  is  mandatory  for  the  officer  superior  to  

confirm the same in writing.   The civil servant, in turn,  

who has received such information, is required to seek  

confirmation  of  the  directions  in  writing  as  early  as  

possible  and  it  is  the  duty  of  the  officer  superior  to  

confirm the direction in writing.   

33. We are of  the view that  the civil  servants  cannot  

function on the basis of verbal or oral instructions, orders,  

suggestions,  proposals,  etc.  and  they  must  also  be

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protected  against  wrongful  and  arbitrary  pressure  

exerted  by  the  administrative  superiors,  political  

executive, business and other vested interests.   Further,  

civil  servants  shall  also  not  have any vested interests.  

Resultantly, there must be some records to demonstrate  

how the civil servant has acted, if the decision is not his,  

but if he is acting on the oral directions, instructions, he  

should  record  such  directions  in  the  file.    If  the  civil  

servant  is  acting  on  oral  directions  or  dictation  of  

anybody, he will be taking a risk, because he cannot later  

take up the stand, the decision was in fact not his own.  

Recording  of  instructions,  directions  is,  therefore,  

necessary  for  fixing   responsibility  and  ensure  

accountability in the functioning of civil servants and to  

uphold institutional integrity.   

RTI Act and Civil Servants

34. Democracy  requires  an  informed  citizenry  and  

transparency  of  information.   Right  to  Information  Act,  

2005  (RTI  Act)  recognizes  the  right  of  the  citizen  to  

secure access to information under the control of public  

authority,  in  order  to  promote  transparency  and

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accountability  in  the working of  every public  authority.  

Section 3 of  the Act  confers right  to  information to all  

citizens and a corresponding obligation under Section 4  

on every public authority to maintain the records so that  

the  information  sought  for  can be provided.   Oral  and  

verbal  instructions,  if  not  recorded,  could  not  be  

provided.  By acting on oral directions, not recording the  

same,  the  rights  guaranteed  to  the  citizens  under  the  

Right to Information Act, could be defeated. The practice  

of giving oral directions/instructions by the administrative  

superiors, political executive etc. would defeat the object  

and  purpose  of  RTI  Act  and  would  give  room  for  

favoritism and corruption.  

35. We, therefore, direct all the State Governments and  

Union Territories to issue directions like Rule 3(3) of the  

All  India  Services  (Conduct)  Rules,  1968,  in  their  

respective  States  and  Union  Territories  which  will  be  

carried out within three months from today.  

36. The Writ Petitions are, accordingly, disposed of with  

the above directions.

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...……………………………..J.                                                   (K.S. Radhakrishnan)

………………………………..J. (Pinaki Chandra Ghose)

New Delhi, October 31, 2013.