1992 S C M R 1093

[Supreme Court of Pakistan]

Present: Shafiur Rahman, Ali ussain !a"il#ash an$ Muhamma$ Af"al %one, &&
'()*+RS),- ./ ,+ P'(&A0, %A.R+ an$ 2 others111Appellants
2ersus
Ch3 SAR4AR A%) 111Respon$ent
Ci2il Appeal (o3399 of 1956, $e7i$e$ on 13th Au8ust, 19913
9/rom the :u$8ment of %ahore i8h Court, %ahore, $ate$ 91;11951 passe$ in )3C3A3
(o3<31 of 1969=3 >
9a= Constitution of Pakistan 91963=111
1111Art3 15<93=111%ea2e to appeal ?as 8rante$ to e@amine, ?hether the Appellate 0en7h3
of the i8h Court #A its :u$8ment 7orre7tlA interfere$ ?ith the :u$8ment of the &u$8e in
Cham#ers3
9#= 'ni2ersitA of the Pun:a# A7t 9)B of 1963=111
1111S3 1195=111,Constitution of Pakistan 91963=, Art3 10<111Appointment of tea7hers an$
7ontrol un$er +ffi7ien7A an$ 4is7ipline Rules of the Chan7ellor ?hether $eeme$ to #e
that of the Co2ernor an$ statutorA3
,he s7heme of 3the 'ni2ersitA of the Pun:a# A7t, 1963 other?ise $oes not sho? that the
Rules of +ffi7ien7A an$ 4is7ipline or the 7on$itions of ser2i7e of the emploAee are
8o2erne$ #A the statutorA rules3 )n the a#sen7e of it, su#se7tion 95= of se7tion 11 of the
A7t ?hi7h relates to the manner in ?hi7h the Chan7ellor shall a7t in the $is7har8e of his
$uties, $oes not make the 7on$itions of ser2i7e of the emploAees statutorA3 All that
su#se7tion 95= of se7tion 11 pro2i$es is that the Co2ernor shall #e #oun$ #A the a$2i7e
of the Chief Minister as he is #oun$ in $is7har8e of his fun7tions un$er Arti7le 10< of the
Constitution of the )slami7 Repu#li7 of Pakistan3 /urther, su7h an in7orporation #A
referen7e on the stren8th of a statutorA pro2ision of a 7onstitutional pro2ision $oes not
raise the status of the statutorA pro2ision to that of a 7onstitutional pro2ision3
Moreo2er, the po?ers an$ $uties that the Chan7ellor e@er7ises or performs un$er the
'ni2ersitA of Pun:a# A7t, 1963 are not anA po?ers or $uties 7onferre$ on the Co2ernor
Dua Co2ernor or of a 7apa7itA ?hi7h he o77upies #A 2irtue of his offi7e as Co2ernor3
,heA are the po?ers an$ $uties of a pu#li7 7apa7itA hel$ #A the persona8e ?ho is also
the Co2ernor3 ,he Chan7ellor>s po?ers un$er the 'ni2ersitA of the Pun:a# A7t, 1963 are
thus not the po?ers an$ $uties of the .ffi7e of the Co2ernor an$ 7onseDuentlA the
prote7tion pro2i$e$ #A Arti7le 10< of the Constitution 7annot #e in2oke$ #A the
Chan7ellor in respe7t of the e@er7ise an$ performan7e of the po?ers an$ $uties of his
offi7e as Chan7ellor un$er the 'ni2ersitA of the Pun:a# A7t, 19633
R3,33 &an:ua 23 (ational Shippin8 Corporation P % 4 196E SC 1E;F3 Prin7ipal, Ca$et
Colle8e, Gohat an$ another 23 Muhamma$ Shoa# !ureshi P%4 195E SC 160F An?ar
ussain 23 A8ri7ultural 4e2elopment 0ank of Pakistan an$ others P % 4 195E SC 19EF
Hainul A#i$in 23 Multan Central Cooperati2e 0ank %imite$, Multan P % 4 19;; SC EE<
an$ >%ahore Central Cooperati2e 0ank %t$3 23 Pir Saifullah Shah P % 4 19<9 SC 210 ref3
Hainul A#i$in 23 Multan Central Co1operati2e 0ank %imite$, Multan P%4 19;; SC EE<
an$ 4r3 S3C3 0arat an$ another 23 ari *inaAak Pataskar an$ others A ) R 19;2 Ma$h3
Pra$3 63 rel3
97= Constitution of Pakistan 91963=111
111Art3 10<111Co2ernor ?oul$ #e #oun$ #A the a$2i7e of the Chief Minister in $is7har8e of
his fun7tions3
9$= Constitution of Pakistan 91963=111
1111Art3 199111Constitutional petition a8ainst termination of emploAment $urin8
pro#ationarA perio$111,erms an$ 7on$itions of emploAee ?ere not 8o2erne$ #A statutorA
rules #ut onlA #A the non1statutorA rulesIre8ulations111+ffe7t111,erms an$ 7on$itions of
emploAee if not 8o2erne$ #A the statutorA rules #ut #A Re8ulations, )nstru7tions or
$ire7tions ?hi7h #o$A in ?hi7h respon$ent ?as emploAe$, ha$ issue$ for its internal use,
anA 2iolation thereof, ?oul$ not, normallA #e enfor7e$ thr9u8h Constitutional
petition111Respon$ent>s appointment #ein8 non1statutorA, Constitutional petition ?as not
7ompetent3>
Prin7ipal, Ca$et Colle8e, Gohat an$ another 23 Muhamma$ Shoa# !ureshi P % 4 195E
SC 160 an$ An?ar ussain 23 A8ri7ultural 0ank of Pakistan an$ others P % 4 195E SC
19E rel3
Ch3 Muhamma$ /arooD, Senior A$2o7ate Supreme Court an$ S3 A#$ul Aasim &aferi,
A$2o7ate1on1Re7or$ for Appellants3
Respon$ent in person3
4ate of hearin8: 11th &une, 19913
&'4CM+(,
SA/)'R RAMA(, &3111%ea2e to appeal ?as 8rante$ to e@amine ?hether the appellate
0en7h of the %ahore i8h Court #A its :u$8ment, $ate$ 91;11951 7orre7tlA interfere$ ?ith
the :u$8ment of the learne$ &u$8e in 7ham#ers3
23 ,he fa7ts lea$in8 to this appeal are that the respon$ent ?as appointe$ as a %e7turer
in %a? a8ainst a permanent post in the Pun:a# 'ni2ersitA %a? Colle8e3 e took o2er on
29191196;3 0A an or$er $ate$ 231511969, his perio$ of pro#ation ?as e@ten$e$ ?3e3f3
291911965 so as to e@pire on 2519119693 .n 261511969, the *i7e1Chan7ellor terminate$
his ser2i7es paAin8 him a month>s salarA in lieu of noti7e ?hi7h ?as appro2e$ #A the
SAn$i7ate on 1316119503 ,he or$er of termination of ser2i7es rea$s as hereun$er:11
J-our attention is in2ite$ to the follo?in8 7on$ition of Aour appointment, as in$i7ate$ in
the appointment letter (o34I532633I+st3 $ate$ 30th Septem#er, 196;:11
K,he appointment ?ill #e termina#le on one month>s noti7e, $urin8 the perio$ of
pro#ation, an$ three months noti7e, after 7onfirmation, from either si$e or paA in lieu
thereof, as the 7ase maA #e3>
4urin8 the perio$ of pro#ation, Aour ?ork an$ 7on$u7t ha2e not #een satisfa7torA3 )t has,
therefore, #een $e7i$e$ to paA Aou one month>s paA in lieu of noti7e an$ to terminate
Aour ser2i7es ?ith imme$iate effe7t3 A 7rosse$ 7heDue (o3C+A19;E<66 $ate$ 26th
Au8ust, 1969 for Rs31,330 9Rupees one thousan$ three hun$re$ an$ thirtA onlA= is
en7lose$ here?ith, the re7eipt of ?hi7h maA please #e a7kno?le$8e$3J
,he Minutes of the SAn$i7ate are as hereun$er:11
JCh3 Sar$ar Ali ?as appointe$ as %e7turer in P3'3 %a? Colle8e on t?o Aears> pro#ation
?ith effe7t from 29 Septem#er, 196;3 ,he *i7e Chan7ellor, in anti7ipation of the appro2al
of the SAn$i7ate e@ten$e$ the perio$ of pro#ation for the thir$ Aear3
Geepin8 in 2ie? the 7onfi$ential reports ?ritten #A the Prin7ipal an$ 4ean, /a7ultA of
%a?, the *i7e1Chan7ellor terminate$ the ser2i7es of Ch3 Sar$ar Ali ?ith effe7t from
261511969 an$ pai$ him one month>s paA in lieu of noti7e, as per terms of his
appointment3
A7tion taken #A the *i7e1Chan7ellor maA #e appro2e$3
Confirme$ #A the SAn$i7ate 2i$e para8raph 2 of its pro7ee$in8s $ate$ 1316119503J
33 ,he respon$ent 7hallen8e$ the a7tion taken a8ainst him #A a Constitution petition
raisin8 a num#er of 8roun$s mostlA le8al3 ,he learne$ &u$8e in Cham#ers, ho?e2er,
$ismisse$ the petition in limine, hol$in8 as hereun$er:11
J9i= ,his petition appears to #e hit #A the rule lai$ $o?n #A the Supreme Court in R3,33
&an:ua 23 (ational Shippin8 Corporation P % 4 196E SC 1E;3
9ii= Confirmation $oes not follo? automati7allA after the e@pirA of the initial perio$ of
pro#ation nor an or$er of e@tension of pro#ation ?as reDuire$ to #e passe$ #efore the
e@pirA of initial perio$ of pro#ation3
9iii= ,he termination of a pro#ation ser2i7e for unsatisfa7torA> ?ork an$ 7on$u7t $oes not
2iolate anA of his 2este$ ri8hts3
9i2= Consi$erin8 that the perio$ of pro#ation in respe7t of the petitioner ?as $ue to e@pire
at a time ?hen the sAn$i7ate ?as not in e@isten7e, the a7tion of the *i7e1Chan7ellor
?oul$ appear to #e 7o2ere$ #A the sai$ su#se7tion3J
E3 An appeal ?as preferre$ #A the respon$ent3 ,he fin$in8s of the appellate 0en7h ?ere
as hereun$er:11
9i= ,hat the respon$ent Kstoo$ 7onfirme$ as a le7turer on the e@pirA of the ori8inal t?o
Aears pro#ation perio$>3
9ii= ,he 2erA or$er of e@tension of pro#ation an$ termination of ser2i7e of the respon$ent
?as ?ithout la?ful authoritA as there ?as no su7h emer8en7A as 7oul$ :ustifA the
in2o7ation of that po?er #A the *i7e Chan7ellor3
9iii= 'nsatisfa7torA 7on$u7t 7onstitutes sti8ma an$ reDuire$ proper inDuirA an$
opportunitA to the respon$ent to e@plain3
.n these fin$in8s, the appeal ?as a77epte$ an$ ne7essarA $e7laration 8rante$3
<3 .ne of the :uris$i7tional Duestions on ?hi7h the Constitution Petition ha$ faile$ #efore
the learne$ &u$8e in 7ham#ers an$ ?hi7h ?as raise$ in 7ontestin8 the Constitution
petition, namelA the non1maintaina#ilitA of a Constitution Petition ?as not at all a$2erte$
to #A the appellate 0en7h of the i8h Court3 ,he result is that ?e ha$ to hear the
ar8uments on that aspe7t of the matter an$ also to 8et it supplemente$ #A ?ritten
ar8uments from the parties3 After R3,33 &an:ua>s 7ase P % 4 196E SC 1E; on ?hi7h
relian7e has #een pla7e$ #A the learne$ &u$8e in 7ham#ers, there ha2e #een 8i2en t?o
$e7isions #A this Court of importan7e to the su#:e7t an$ rele2ant to the issue un$er
7onsi$eration3 ,hese are, the $e7isions in the Prin7ipal, Ca$et Colle8e, Gohat an$
another 23 Muhamma$ Shoa# !ureshi P % 4 195E SC 160 an$ An?ar ussain 23
A8ri7ultural 4e2elopment 0ank of Pakistan an$ others P%4 3195E SC 19E3
;3 Se7tion 31 of the 'ni2ersitA of the Pun:a# A7t, 1963 9Pun:a# A7t (o3 )B of 1963 11
hereinafter referre$ to as the A7t= 7ontains the follo?in8 la?:11
J313 Statutes3111 91= Su#:e7t to the pro2isions of this A7t, Statutes maA #e ma$e to
re8ulate or pres7ri#e all or anA of the follo?in8 matters:111
9a= the 7onstitution of pension, insuran7e, 8ratuitA, pro2i$ent fun$ an$ #ene2olent fun$
for 'ni2ersitA emploAeesF 3
9#= the s7ales of paA an$ other terms an$ 7on$itions of ser2i7e of offi7ers, tea7hers an$
other emploAees of the 'ni2ersitAF
1111111111111111111111111111111111111
9k= effi7ien7A an$ $is7ipline of 'ni2ersitA emploAees3J 3
Pro2iso 9iii= to su#se7tion 92= of se7tion 31 ?as intro$u7e$ #A Pun:a# A7t B))) of 196< in
the A7t in the follo?in8 ?or$s:11
J,he SAn$i7ate or the Senate shall not ha2e the po?er to make anA Statutes 7on7ernin8
effi7ien7A an$ $is7ipline of offi7ers, tea7hers an$ other emploAees of the 'ni2ersitA an$
su7h Statutes maA #e ma$e #A the Chan7ellor3J
,he Chan7ellor>s position an$ his po?ers ha2e #een 7larifie$ in se7tion 11 of the A7t3
Su#se7tion 91= of se7tion 11 of the A7t has remaine$ unamen$e$ throu8hout an$ it
rea$s as hereun$er:11
J,he Co2ernor of the Pun:a# shall #e the Chan7ellor of the, 'ni2ersitA3J
)t 9se7tion 11= ha$ ori8inallA onlA si@ su#se7tions $ealin8 ?ith the 2arious po?ers of the
Chan7ellor3 )n 196<, t?o amen$ments ?ere ma$e in this se7tion3 0A Pun:a# A7t B))) of
196<, su#se7tion 96= in the follo?in8 ?or$s ?as a$$e$:11
J(ot?ithstan$in8 anAthin8 to the 7ontrarA 7ontaine$ in this A7t, Statutes, Re8ulations or
Rules, the Chan7ellor maA111
9a= pla7e the ser2i7es of anA of the offi7ers, tea7hers or other emploAees of the
'ni2ersitA at the $isposal of the Co2ernment or anA other 'ni2ersitA or )nstitution, for
su7h perio$ an$ on su7h terms an$ 7on$itions as maA #e $etermine$ #A himF pro2i$e$
that su7h terms an$ 7on$itions shall not #e less fa2oura#le than those a$missi#le to him
imme$iatelA #efore his transferF an$
9#= make appointment to anA post in the 'ni2ersitA ?hether as a tea7her or other?ise
from persons in the ser2i7e of Pakistan or from offi7ers, tea7hers or other emploAees of
anA other 'ni2ersitA3J
,his su#se7tion 96= of se7tion 11 ?as, ho?e2er, $elete$ #A .r$inan7e (.3B)) of 19503
,he other amen$ment ma$e in 196< an$ on ?hi7h 8reat relian7e has #een pla7e$ #A
the respon$ent ?as su#se7tion 95= of se7tion 11 of the A7t,> intro$u7e$ #A the Pun:a# A7t
B*) of 196<, in the follo?in8 ?or$s:11
)n the performan7e of his fun7tions un$er the A7t the Chan7ellor shall a7t an$ #e #oun$
in the same manner as the Co2ernor of a Pro2in7e a7ts an$ is #oun$ un$er Arti7le 10<
of the Constitution of the )slami7 Repu#li7 of Pakistan3J
63 0A in2okin8 this su#se7tion 95= of se7tion 11 of the A7t, the 7ontention of the
respon$ent is that the appointment of the tea7hers an$ the 7ontrol un$er the +ffi7ien7A
an$ 4is7ipline Rules of the Chan7ellor #e7omes that of the Co2ernor an$ hen7e
statutorA3 ,his 7ontention suffers from three $efe7ts3
/irstlA, the s7heme of the A7t other?ise $oes not sho? that the Rules of +ffi7ien7A an$
4is7ipline or the 7on$itions of ser2i7e of the respon$ent are 8o2erne$ #A the statutorA
rules3 )n the a#sen7e of it, su#se7tion 95= of se7tion 11 ?hi7h relates to the manner in
?hi7h the Chan7ellor shall a7t in the $is7har8e of his $uties, $oes not make the
7on$itions of ser2i7e of the emploAees statutorA3 All that su#se7tion 95= of se7tion 11
pro2i$es is that the Co2ernor shall #e #oun$ #A the a$2i7e of the Chief Minister as he is
#oun$ in $is7har8e of his fun7tions un$er Arti7le 10< of the Constitution of the )slami7
Repu#li7 of Pakistan3
Se7on$lA, su7h an in7orporation #A referen7e on the stren8th of a statutorA pro2ision of a
7onstitutional pro2ision $oes not raise the status of the statutorA pro2ision to that of a
7onstitutional pro2ision3 )t has #een so hel$ #A this Court in Hainul A#i$in 23 Multan
Central Cooperati2e 0ank %imite$, 3Multan P % 4 19;; SC EE< an$ the %ahore Central
Cooperati2e 0ank %t$3 23 Pir Saifullah Shah P % 4 19<9 SC 2103
,hir$lA, the $ifferen7e #et?een the position of the Co2ernor as the Chief +@e7uti2e of the
Pro2in7e an$ as the Chan7ellor of a 'ni2ersitA has #een ?ell #rou8ht out in an )n$ian
$e7ision in 4r3 S3C3 0arat an$ another 23 ari *inaAak Pataskar an$ others A ) R 19;2
Ma$hAa Pra$esh 63 in the follo?in8 ?or$s:11
JLhen an A7t 7onfers po?ers on the Co2ernor not Dua Co2ernor #ut in a $ifferent
7apa7itA hel$ #A him #A 2irtue of his offi7e as Co2ernor, the po?ers an$ $uties so
7onferre$ are not the po?ers an$ $uties of the offi7e of the Co2ernor3 ,heA are the
po?ers an$ $uties of a $ifferent offi7e ?hi7h the Co2ernor hol$s #A 2irtue of his offi7e as
Co2ernor3 )t is alto8ether erroneous to saA that as the other offi7e is hel$ #A the person
?ho is the Co2ernor of the State #A 2irtue of his offi7e as Co2ernor, therefore the po?ers
an$ $uties he e@er7ises or performs of that other offi7e un$er the rele2ant A7t are the
po?ers an$ $uties 3of his offi7e as Co2ernor 3333 ,hus the po?ers an$ $uties that the
Chan7ellor e@er7ises or performs un$er the A7t are not anA po?ers or $uties 7onferre$
on the Co2ernor Dua Co2ernor or of a 7apa7itA ?hi7h he o77upies #A 2irtue of his offi7e
as Co2ernor3 ,heA are the po?ers an$ $uties of a pu#li7 7apa7itA hel$ #A the persona8e
?ho is also the Co2ernor3 ,he Chan7ellor>s po?ers un$er the &a#alpur 'ni2ersitA A7t are
thus not the po?ers an$ $uties of the offi7e of the Co2ernor an$ 7onseDuentlA the
prote7tion pro2i$e$ #A Arti7le 3;191= 7annot #e in2oke$ #A the Chan7ellor in respe7t of
the e@er7ise an$ performan7e of the po?ers an$ $uties of his offi7e as Chan7ellor un$er
the &a#alpur 'ni2ersitA A7t3J
53 ,he respon$ent has also attempte$ on the stren8th of a notifi7ation $ate$ 25th of
Septem#er, 196; ma$e un$er su#se7tion 91= of se7tion ; of the3 A7t to esta#lish that for
a perio$ i3e3, upto 20th Septem#er, 1966, the 'ni2ersitA %a? Colle8e, %ahore ?as
$eta7he$ from the Pun:a# 'ni2ersitA an$ pla7e$ un$er the 7ontrol an$ mana8ement of
the %a? 4epartment Co2ernment of Pakistan3 )n this manner, his ser2i7es #e7ame
statutorA3 3
+2en if this 7ontention is a77epte$ in its entiretA as 7orre7t, it ha$ its le8al effe7t onlA for
the perio$ that su7h transfer 7ontinue$ an$ a$mitte$lA the restoration of the %a? Colle8e
to the 'ni2ersitA took pla7e #A notifi7ation $ate$ 22n$ Septem#er, 1966 restorin8 the
earlier position $oin8 a?aA ?ith the effe7t of su#se7tion 92= of se7tion ; of the A7t3 ,he
respon$ent>s ser2i7es stoo$ restore$ to the Pun:a# 'ni2ersitA an$ 7ontinue$ to #e
8o2erne$3 thereafter un$er that A7t3
93 )t follo?s from these pro2isions of the A7t that not?ithstan$in8 su#se7tion 95= of
se7tion 11 of the A7t, the appointment of the respon$ent, as :u$8e$ in the li8ht of
$e7isions in the 7ases of Prin7ipal, Ca$et Colle8e,3 Gohai P % 4 195E SC 160 an$ An?ar
ussain P % 4 195E SC 19E ?as non1statutorA an$ a Constitution petition ?as not
7ompetent as hel$ #A the learne$ &u$8e in Cham#ers3 en7e, this appeal is allo?e$3
,he :u$8ment un$er appeal is set asi$e an$ that of the learne$ &u$8e in 7ham#ers
restore$3 (o or$er as to 7osts3
A3A3I'1E1ISC Appeal allo?e$3