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(1984)1984 September 14 [STYLIANIDES, J.] IN THE MATTER OF ARTICLE 146 OF THE CONSTITUTION GEORGHIOS MAVROMMATTS AND OTHERS, Applicants, v.
  1. THE LAND CONSOLIDATION AUTHORITY,
  2. THE REPUBLIC OF CYPRUS, THROUGH THE MINISTER OF FINANCE AND/OR THE MINISTER OF AGRICULTURE AND NATURAL RESOURCES, Respondents. (Case No. 420/83). OLGA MAVROMMATI, Applicant, v. THE LAND CONSOLIDATION AUTHORITY, Respondents. {Case No. 447/83). GEORGHIOS ELIADES, Applicant, v. THE LAND CONSOLIDATION AUTHORITY, Respondents. (Case No. 480/83). Administrative Law—"Omission" in the sense of Article 146 of the Constitution—Meaning. Legitimate interest—Article 146.2 of the Constitution—Acceptance of administrative act unreservedly—Deprivesacceptor of a legitimate interest entitling him to make a recourse againu it— 1006 3 C.L.R. Ma>ronunatis and Others v.Republic Acceptance of a decision by Trade Union—Deprives the Trade Union and its members of any legitimate interest in the sense of the above Article. 5 Industrial Relations—Collective Agreement—Does not create rights of public law. Land Consolidation Law, 1969 (Law 24/69)—Lund Consolidation Authority—Acts or decisions of, relating to the structure of the services and the posts of the Authority—Are subject to the approval of the Councilof Ministers—Section 4
(1)(b) of the Law. 10 Legislative Power—Does not consist only of the enactment of laws by the legislative organ but, also, includespreparatory andancillary activities in the course of the legislativeprocess—Consideration by the Council of Ministers of a bill, to be introduced to the House of Representatives, is an act preparatory tolegislation 15 —And does not amount to the exercise of "executive or administrative authority" in the sense of Article 146.1 of the Constitution. 20 The applicants were servants of respondent 1, the Land Consolidation Authority, which is a Corporation of Public Law established by the Land Consolidation Law, 1969 (Law 24/69). After negotiations between the trade union of the servants of the Authority and respondent No. 1 a collective agreement was reached for thejob evaluation and conversion of the salaries of the servants of the Authority, including the applicants. 25 30 35 The Council of Ministers, however, decided to emplace the servants of the Authority in the civil service of the Republic and did not approve steps for the implementation of the collective agreement. On the 26th July, 1982, the trade union of the applicants accepted the emplacement of the servants of the Authority in the public service subject to certain terms, and agreed to the suspension of the job evaluation and restructure of the service of the respondent Authority. The agreement between the union and the Director of Public Administration and Personnel dated 25th April, 1983 was finally approved at a general meeting of the members of the trade union concerned. The above agreement was approved by the Council of Ministers by its decision of 23.6.1983; and in furtherance of this 1007 Mavrommatis and Others τ. Republic
(1984)decision a bill was intruduced to the House of Representatives by the Minister of Agriculture andNaturalResouices providing inter alia, for the establishment of a ConsolidationDepartment under the Ministry of Agriculture and Natural Resources. On 20th June, 1983 counsel for the applicants addressed 5 a letter to the Minister of Finance, the Minister of Agriculture and Natural Resources and the Chairmanof the Land Consoli­ dation Authority, objecting to the intended emplacement of agronomists/topographers engineers of theAuthority onGovern­ ment scales A8-A10 by the intended emplacement of the 10 servants of the respondent Authority in the public service. On 26th August, 1983, he addressed another letter to the Chairman of theAuthority in which he referred to the proposal by the Ministry of Financefor the emplacement of the servants of theAuthority inthepublic service andtheintendedrestructure 15 of the service of the Authority, alleging that this was unlawful. In reply the Director-Generalof the Ministry of Agricutlure and Natural Resources by his letter* of 16.9.1983 informed Counsel that the officers of the Land Consolidation Authority continue to serve under the terms and conditions of service, 20 the schemes of service and the scales at which they had been originally appointed; that following negotiations they decided to be emplaced in the Public Service; that applicants will be informed of their scale of emplacement after the approval of the relevant Bill and the completion of the required formalities; 25 and that the question of the structure of the various posts in the new Government Land Consolidation Departmentis within the competence of the Minister of Finance. Thereafter applicants filed the above recourses for a declara­ tionoftheCourtdeclaringasinvalid and/orillegalthecontinuous 30 refusal and/or omission of respondent No. 1to proceed with the evaluation/reorganization of the posts, scales and salaries of the applicants prior to the emplacement of applicants in the Public Service following the amendment of the Law. Counsel for the respondents in his opposition contendedthat 35 the act or omission complained of was not a decision, act or The letter is quoted at pp. 1019-1020 post. 1008 3 C.L.R. 5 Mavroinmatis and Others v. Republic omission within the sense of Article 146.1 of theConstitution and, therefore, was notjusticiable; and further that theappli­ cants lacked legitimate interest as they consented to their em­ placement and/or posting on the corresponding scales of the civil service. On the preliminary objection: 10 15 20 25 30 35 Held,
(1)that an "omission" in the sense cf Article 146 of the Constitution means an omission to do something required by Law, as distinct from the non-doing of a particular act orthenon-takingofaparticularcourseasa result oftheexercise of discretionary powers; and that "omission" presupposes a duty imposed by law and failure to perform that duty.
(2)That if a person acceptsanadministrative act or omission unreservedly, he no longer possesses a legitimate interest entitling himto make a recourse against it in the sense of Article 146.2 of the Constitution;that acceptance by the trade union of the new agreement, as aforesaid, is acceptance by each one of the members separately and at any rate deprives theirunion and the applicants from any legitimate interest, if they had any; that the applicants were not adversely affected; that they continued to be on the scales that they were, and they have no legitimate interest; and that accordingly act or omission complained of is not justiciable. Held, further,
(1)that a collective labour agreement does not create rights of public law; that, moreover, any act or decision of the Authority relating to the structure of the services and the posts of the Authority, the scheme of service, the general rules of service, etc. are subject to the approval of theCouncil of Ministers(see section4(l)(b) of th Land Consolidation Law, 1969(Law 24/69));thatfailing suchapproval theyarenotlegally valid, not binding even on the Authority ίnd not creating any legal results; accordingly the.applicants derived no right from the alleged collective agreement.
(2)Thatlegislativepower consists notonly of thedeliberation and enactmentof laws by the legislative organs but, in a wider sense, it also includes the preparatory and ancillary activities in thecourse of thelegislative process; that,therefcie, the con­ sideration by the Council of Ministers of the Bill in question 1009 Mavrommatis and Others v. Republic
(1984)to be introduced to the House of Representatives was an act preparatory to legislation and for this reason it doesnetamount to the exercise of "executive or administrative authority" in the sense inwhich such words areused inparagraph I of Article 146. 5 Applications dismissed. Cases referred to: Kontemeniotis v. C.B.C.
(1983)3 C.L.R. 1027 at p. 1032; Paphitis and Othersv. Republic
(1983)3 C.L.R. 255 at p. 261; Republic v. Mcnelaou
(1982)3 C.L.R. 419 at p. 431; CyprusTanneryv. Republic
(1980)3 C.L.R. 405; Argyrou and Others v. Republic
(1983)3 C.L.R. 474 at p. 484; Myrianthis v. Republic
(1977)3 C.L.R. 165; Tomboli v. CYTA
(1982)3 C.L.R. 149; Ionides v. Republic
(1979)3 C.L.R. 679; Papaphilippou v. Republic, 1 R.S.C.C.
  1. 10 15 Recourses. Recourses for a declaration that the refusal and/or omission of respondent No. 1to proceed with the evaluation/restructuring of posts, scales and salaries of the applicants before their, by 20 the amendment of the law, emplacement in the Public Service is null and void. A. S. Angelides, for applicants in Cases Nos. 420/83 and 447/
  2. P. Angelides, for applicant in Case No. 480/
  3. 25 Ch.Kyriakides,Counsel of theRepublic,for the respondents» Cur. adv. vult. , STYLIANIDES J. read the following judgment. The applicants, servants of respondent No. 1, the Land Consolidation Author­ ity, were and are members of a trade union. 30 Respondent "No. 1 is a corporation of public law, established by Law No. 24/
  4. Its functions are set out in s.4 thereof. Section 4(I)(b), as amended by Law No. 8/73, reads:- . "4:-(l) Τηρουμένων τών διατάξεων τοΰ παρόντος Νόμου ή 'Αρχή άσκεϊ τάς λειτουργίας: (α) : : -L 1010 1 35 3 C.L.R. Mau-mmatis and Others v. Republic Stylianldes J. (β) Tfj εγκρίσει τοϋ Υπουργικού Συμβουλίου, διορίζει υπαλλήλους κσΐ αντιπροσώπους προς πραγμάτωσιν τώυ σκοπών της 'Αρχής, καΐ διά Κανονισμών καθορίζει— (ι) τήν διάρθρωσιν των υπηρεσιών καΐ τάς θέσεις της 'Αρχής, καΐ καταρτίζει σχέδια υπηρεσίας δια τάς τοιαύτας θέσεις. 5 10 (Π) τους γενικούς ορούς υπηρεσίας των υπαλλήλων καΐ αντιπροσώπων της 'Αρχής, τα ωφελήματα άφυπηρετήσεως των υπαλλήλων αυτής ως καΐ τα της έπ' αυτών ασκήσεως πειθαρχικής εξουσίας. 15 (ιιι) περί ιδρύσεως δια τους υπαλλήλους τής 'Αρχής ταμείου προνοίας, ταμείου Ιατροφαρμακευτικής πε­ ριθάλψεως και οίουδήποτε έτερου ταμείου τό όποιον ή 'Αρχή θά έκρινεν άναγκαϊον διά τους σκοπούς τής υπηρεσίας αυτών: Νοείται ότι ή 'Αρχή δύναται, ώς ήθελεν όρισθή διά κανονισμών, να άναθέτη τήν ασκησιν των δυνάμει των υποπαραγράφων (ι) καΐ (ιι) τής π α ­ ρούσης παραγράφουαρμοδιοτήτων αυτής είς Έπιτροπήν συνισταμένην έκ τοϋ Προέδρου τής 'Αρχής καΐ ουχί όλιγωτέρων των τεσσάρων έκ των μελών αϋτης". 20 ("-
(1)Subject t o the provisions of this Law the Authority shall exercise the following functions: (
  1. a)25 (
  2. b)with the approval of the Council of Ministers t o appoint officers and agents for accomplishing the objects of the Authority and regulate by rules— (
  3. i)the structure of the services and posts and prepare schemes of service for such posts; 30 35 (
  4. ii)the general conditions of service of the officeis and agents of the Authority, the retirement benefits of its officers as well as the exorcise of disciplinary control over them; (iii) the establishment of the officers of the Authority of a provident fund, a medical treatment fund and any other fund which the Authority might 1011 St;-Jian;t!es J. Mavrommatis and Others v. Republic (19E4) consider necessary for the purposes of their service: Provided that the Authority may, as might be fixed by rules, delegate the exercise of its powers under sub-paras, (
  5. i)and (
  6. ii)of this paragraph to 5 a committee composed of the Chaiman of the Authority andnotlessthanfour of itsmembers"). After prolonged negotiations between the trade union of the servants of the Authority and respondent No. 1 a collective agreement was reached for the job evaluation and conversion 10 of thesalariesoftheservants of theAuthority,includingcertainly the applicants. From the material before me it is plain that the Council of Ministers decided to emplace the servants of the Authority in the civil service of the Republic and did not approve steps for 15 theimplementation of thecollective agreement; onthecontrary, itdiscouraged theAuthority from doingso. Thus, theapproval of the Council of Ministers for this collective agreement, which is a prerequisite, was not given. On 26th July, 1982, thetradeunion by Appendix 15accepted 20 the emplacement of the servants of the Authority in the public service subject to certain terms, and agreed to the suspension of thejob evaluation and restructure of the service of the res­ pondent Authority. The agreement between the union and the Director of Public 25 Administration and Personnel dated 25th April, 1983 (Appendix 19) was finally approved at a general meeting of the members of the trade union concerned, and the union sent the following letter on 19th May, 1983 (Appendix 20):"θέμα: Ένταξη των Υπαλλήλων τη$ Αρχήί Αναδασμού στη Δημόσια Υπηρεσία 30 Επιθυμούμενααναφερθούμεστις επιστολή σο$ μεημ.25.4.1983 και 14.5.1983 με αρ. φακ.6003/71/C/II σχετικά με το πιό πάνω θέμα και να σας πληροφορήσουμε τα εξήξ: 1. Ηγενική συνέλευση των μελών τη*Ε.Υ.Α.Α.Κ.αποφάσισε 35 να αποδεχθεί την ένταξη των υπαλλήλων της Αρχή* ΑναδασμούστηΔημοσίαΥπηρεσίασύμφωναμετι$πρόνοιεξ 1012 3 CX.R. MaTrommatis and Others y. Republic StyUanfaks J. και όρους που περιλαμβάνονται στην έκθεση της Τεχνικής Επιτροπή? που ετοιμάστηκε για το θέμα, καθώς και τους όρους που συμφωνήθηκαν κατά τις διαπραγματεύσεις μεταξύ του Ανώτερου Λειτουργού της Υπηρεσίας Δημόσιας Διοίκησης και Προσωπικού κ. Δ. Αβραάμ και της Διοι­ κούσας Επιτροπής της Ε.Υ.Α.Α.Κ., που μας στάληκαν με την επιστολή σας ημ. 25.4.1983 και αρ. φακ. 6008/71/ 0/11, με τις ακόλουθες προϋποθέσεις: 5 (α) Στον όρο 'οργανωτική διάρθρωση', που αναφέρεται στη παράγραφο (γ) του συνημμένου κειμένου στην επιστολή σας με ημ. 25.4.1983 με αρ. φακ. 6008/71/C/11, εννοούμε ότι περιλαμβάνονται: Ι. Ηοργανωτική διάρ­ θρωση του νέου Τμήματος Αναδασμού, II. Η βαθμο­ λογική αναδιάρθρωση των θέσεων των υπαλλήλων του νέου Τμήματος. 10 15 (β) Κατά τη βαθμολογική αναδιάρθρωση των θέσεων θα εφαρμοστούν τα ίδια κριτήρια και οι ίδιες φόρμουλες που εφαρμόστηκαν στη Δημόσια Υπηρεσία. 2. 20 25 3. Σας παρακαλούμε να προωθήσετε τη διαδικασία για την ένταξητων υπαλλήλων της Αρχής στη Δημόσια Υπηρεσία, το συντομότερο και οπωσδήποτε μέσα στα πλαίσια που αναφέρονται στη παράγραφο (ι) του συνημμένου κειμένου στην επιστολή σας με ημερ. 25.4.1983 και αρ. 6008/71/C/II. 4. 30 Για το θέμα του Ταμείου Ευημερίας σας πληροφορούμε ότι αποδεχόμαστε την προσφορά που μας γίνεται με την επιστολή σας ημερ. 14.5.1983 και αρ. φακ. 6008/71/C/H. Γίνεται αντιληπτό ότι, όπως συμφωνήθηκε με τον κο. Δ. Αβραάμ, η Δ. Επιτροπή θα εφοδιασθεί με αντίγραφο του Νομοσχεδίου που θα ετοιμαστεί, προτού τούτο υπο­ βληθεί στο Υπουργικό Συμβούλιο". ("Subject: Emplacement of Officers of the Land ConsolidationAuthority in the PublicService 35 We wish to refer to your letters dated 25.4.1983 and 14.5.1983 under File No. 6003/71/C/II with reference to the above subject and to inform you as follows: 1. The general meeting of the members of E.Y.A.A.K. 1013 I Stjlianides J. Mavrommatis and Others \. Republic (1X4) decided to accept the emplacement of llic officers of the Land Consolidation Authority in the Public Service in accordance with the provisions and conditions included in the report of theTechnical Committee prepared on the subject, as well as the conditions agreed upon during the 5 negotiations between a Senior Officer of the Public Administration and Personnel Service Mr. D. Aviaam and the managing Committee of E.Y.A.A.K. sent to us by your letter dated 25.4.1983 and file No. 6008/71/ C/Il on the following conditions: 10 (
  7. a)In the term 'organic structure", which is referred to in paragraph (
  8. c)of the text of your letter dated 25.4. 1983 and file No. 6008/71/C/li. we understand that it includes: I. The organic structure of the new Section of Land Consolidation, II. The evaluation of the restructuring of the posts of the officers of the new Section. 15 (
  9. b)To use at the evaluation of the restructuring of the posts the same criteria and the same formulas used in the Public Service. 2. As regards' the subject of the welfare fund we inform you that wc accept tho offer mide to us by your Inttor dated 14.5.1983, file No. 6008/71/C/II. 3. You arerequested tomovetheprocedure for theemplacement of the officers of the Authority in the Public Service 25 the soonest possible and in any way within the framework referred to in paragraph (
  10. i)of the attached text of your letter dated 25.4.1983, rcf. No. 6008/71/C/II. 4. it isto beunderstood that, asagreed with Mr. D. Avraam, the managing committee will be supplied with a copy 30 of the Bill to be prepared before it is submitted to the Council of Ministers"). The contents of the said agreement weie submitted to the Council of Muiisters by the Ministry uf Finance and by its Decision No. 23.326dated 23.6.1983it approved and authorized 35 the Minister of Finance to takotheneccssaiysteps for trmimplementation of its decision and the agreement approved. Thereafter, infurtherance of the said decision the Council of Ministers 1014 20 5 C.L.R. 5 Mavrommatis and Others v. Republic Stylianides J. by Decision No. 23.332 (Appendix 24) approved a Bill and authorised the Minister of Agriculture & Natural Resources to introduce it to the House of Representatives. This Bill was published in Supplement No. 6 to the Official Gazette of 15.7.1983. It is Appendix No. 25 to the opposition. The, short title thereof is "The Land Consolidation of Rural Proper­ ties (Amendment) Law, 1983". The provisions of this Bill relevant to this case are that a Consolidation Department is established under the Ministry 10 of Agriculture & Natural Resources. A new s. 54 is added that reads as follows:- 15 20 25 30 35 "54.-(
  11. l)Παν πρόσωπου το οποίον αμέσως προ της ημερο­ μηνίας ενάρξεως της ισχύος του παρόντος Νόμου ετέλη εις την υπηρεσίαν της Αρχής ως μέλος του προσωπικού αυτής μεταφέρεται από της ημερομηνίας ταύτης, εις την υπηρεσίαν της Δημοκρατίας και τοποθετείται έπειτα υπό της αρμοδίας αρχής της Δημοκρατίας ανεξαρτήτως οιασδήποτε διατάξεως οιουδήποτε ετέρου νόμου,ειςΘέσιν η οποίαθα περιλαμβάνεται εις τον προϋπολογισμού του Τμήματος, και διά δε το εναλλάξιμον και λογιστικού προσωπικού της Αρχής εις θέσιν η οποία θαπεριλαμβάνεται ειςτον Τακτικόν Προϋπολογισμόν της Δημοκρατίας, το καθεστώς και αι λειτουργίαι της οποίας θα είναι ανάλογοι προς τας λειτουργίας της κατεχόμενης θέσεως εις την υπηρεσίαν της Αρχής και θα λαμβάνη την αντιμισθίαν αυτού παρά της Δημοκρατίας.
(2)Η παρά τη Αρχή υπηρεσία ή προηγουμένη παρά τη Δημοκρατία υπηρεσία οιουδήποτε προσώπου επί εκτά­ κτου, προσωρινής ή μονίμου βάσεως αναγνωρίζεται διά πάντας τους σκοπούς των περί Δημοσίας Υπηρεσίας Νόμων του 1967 έως 1983 ή οιουδήποτε ετέρου νόμου, τηρουμένων των προνοιών των εν λόγω Νόμων ως και οιωνδήποτε Κανο­ νισμών εγκριθέντων επί τη βάσει οιουδήποτε Νόμου, ή ετέρων Κανονισμών ρυθμιζόντων τοιαύτα θέματα καθώς και των προνοιών των εδαφίων3 και 4 του παρόντοςάρθρου. Παν τοιούτο πρόσωπον μέχρι της κατά το παρόν άρθρον τοποθετήσεως του εξακολουθεί να κατέχη την θέσιν την οποίαν κατείχε ευθύς αμέσως προ της ενάρξεως ισχύος του παρόντος Νόμου: Νοείται ότι η αντιμισθία της θέσεως την οποίαντο πρόσω1015 Stylianides J. Marrommatis and Others v. Republic
(1984)που τούτο κατείχε ως εμφαίνεται εις τον τελευταίον προυπολογισμόν της Αρχής θεωρείται ως προσωπική αντιμισθία του προσώπου τούτου: Νοείται περαιτέρω ότι μέχρις ότου διενεργηθή και εγκριθή μελέτη αναθεωρήσεως/αναδιοργανώσεως των υπηρεσιών του 5 Τμήματος, περιλαμβάνουσα και αξιολόγησιν και εναρμόνισιν των παρ 1 αυτώ θέσεωυ και εγκριθώσι σχέδια υπηρεσίας και κλίμακες μισθοδοσίας, το Υπουργικού Συμβουλίου δύναται να τροποποίηση τα υφιστάμενα σχέδια υπηρεσίας διά της απαλείψεως εξ αυτών της αναφοράς εις την Αρχήν και της 10 αντικαταστάσεως της με αυαφοράυ εις το Τμήμα και υα κατάργηση υφιστάμευα σχέδια υπηρεσίας του εναλλαξίμου και λογιστικού προσωπικού της Αρχής, διατηρώντας όμως την υφιστάμενην διάρθρωσιν των υπηρεσιών της.
(3)Η π α ρ ά τ η Δημοκρατία υπηρεσία παντός τοιούτου προσώπου θεωρείται ως άνευ διακοπής συνέχισις της παρά τη Αρχή υπηρεσίας αυτού ως και της τυχόν υπηρεσίας αυτού παρά τη Δημοκρατία, υ©' οιουσδήποτε όρους, προ της ιδρύ­ σεως της Αρχής: 15 Νοείται ότι παν τοιούτο πρόσωπον, επιλέξαν υπηρεσίαν, 20 ή διορισθέν παρά τη Αρχή λαβόν επί τούτω οιονδήποτε επίδομα λ ό γ ω αποχωρήσεως (εν τοις εφεξής καλούμενον ως 'ωφέλημα επί τη αποχωρήσει*) αναφορικώς προς περίοδον χρόνου υπηρεσίας εις την Δημοκρατίαν προ του διορισμού του εις την Αρχήν, δύναται ευτός ενός μηνός από της μετα- 25 φοράς του εις την υπηρεσίαν της Δημοκρατίας, ως ανωτέρω καθορίζεται, όπως επιλέξει ή την επιστροφήν του ληφθέντος ωφελήματος επί τη αποχωρήσει, οπότε διά σκοπούς ωφε­ λημάτων επί τη αποχωρήσει, ως περίοδος υπηρεσίας αυτού θα λογίζεται ολόκληρος η υπηρεσία αυτού εξ υπαρχής, 30 ή να μη επιστρέψη το τοιούτον ωφέλημα επί αποχωρήσει, οπότε διά τοιούτους σκοπούς η περίοδος υπηρεσίας αυτού θα λογίζεται ως αρχομένη α π ό της ημερομηνίας αναλήψεως υπηρεσίας παρά τη Αρχή. ""> Η ως άνω επιστροφή οιουδήποτε ποσού γίνεται μεθ*. 35 απλού τόκου, προς τοσούτου επιτοκίου όσον ο Υπουργός Οικονομικών ήθελεν εκάστοτε καθορίσει, υπολογιζόμενου α π ό της ημερομηνίας καθ* ην τούτο είχε καταβληθή μέχρι της ημερομηνίας της επιστροφής ολοκλήρου του ποσού. 1016 3 C.L.R. Mavrommatis and Others v. Republic Styiianides J. Ο χρόνος και ο τρόπος της επιστροφής καθορίζονται υπό του Υπουργού Οικονομικών." 5 10 15 20 25 ("54.
(1)Every person who was, immediately before the coming into force of this Law, was in the service of the Authority as a member of its staff is transfered from that date in the service of the Republic and is placed later by the appropriate authority of the Republic, irrespective of any provision of any other law, to a post which is in­ cluded in the budget of the section and for theinterchangeable and accounting staff of the Authority to a post which is included in the Ordinary Estimates of the Republic, the status and functions of which will be analogous to the fun­ ctions of the post held in the service of the Authority and will receive his salary from the Republic.
(2)The service with the Authority or previous service with the Republic of any person on a casual, temporary or permanent basis are recognised for all purposes of the Public Service Laws, 1967-1983 or any other law, subject to theprovisions of the said laws as well as any rules approved on the basis of any law or other rules regulating such matters as well as the provisions of sections 3 and 4 of this section. Every such person until his emplacement in accordance with this section continues to hold the post which he held immediately before the coming into force of this law: Provided that the salary of the post which this person held as it appears in the estimates of the Authority is considered as personal salary of this person. 30 35 40 Provided further that until the study on the revision/ restructuring of the services of the section is approved, including also evaluation and haimonization of the posts under it and the schemes of service and the salary scales are approved, the Council of Ministers may amend the existing schemes of service by the deletion from them the reference to theAuthority andits substitution with reference to the Section and to repeal existing schemes of service of the interchangeable and accounting staff of the Author­ ity but preserving theexisting structure of its services.
(3)The service with the Republic of every such person is considered as continuationwithout a break of his service 1017 St>lianides J. Mavrommatis ami Others v. Republic
(1984)with the Authority and of his service with the Republic, if any, under any terms, before the establishment of the Authority. Provided that every such person,whohat.chosenservice or was appointed by the Authority received for this pur- 5 pose any retirement benefit (hereinafter called as 'retirement benefit") in respect of the period of his service in the Republic before his appointment with the Authority may within one month of his emplacement in the service of the Republic, as fixed above, elect either the refund of the 10 retirement benefit when for retirement benefits, as period of service will be considered all his service from the beginning or not to refund the retirement benefit when for such purposes his periodof service will beconsidered as starting from the day he takes up duty with the Authority. 15 Theaboverefund of anysumismadewithsimpleinterest at such an interest as the Minister of Finance might from time to timefix,to be culculated from the day it had been paid until the day of the refund of the whole amount; the time and mode of refund arefixedby the Minister of 20 Finance"). On 20th June, 1983, counsel for the applicants addressed a lettci to the Minister of Finance, the Minister of Agiicultuie & Natural Resources and the Chairman of the Land Consolidation Authority, objecting to the intended emplacement of 25 agronomists-topographers engineers of the Authority on Government scales A8-A10 by the intended emplacement of the servants of the respondent Authority in the public service. On26thAugust, 1983,headdressedanothei lettertotheChairman of the Authority in which he referred to the proposal by 30 ihe Ministry of Finance for the emplacement of the servants of the Authority in the public service and the intended restructureoftheserviceoftheAuthority,allegingthatthisisunlawful. Mr. Karouzis, Senior Officer of the Authority, sent on 9th September, 1983, to the Director-General, Ministry of Finance, 35 as Chairman oftheAuthority, amemorandumoftheevaluation of the posts of the servants-employees—of the Authority (Appendix 33) and on 10th Septembei, 1983, he submitted a 1018 3 C.L.R. Mavrommatfa and Others v. Republic Styllanides J. second memorandum which was intituled "Posts Evaluation— Servants of Land Consolidation (Legal Points)". 5 10 On 16th September, 1983, the Diicctor-General of the Ministry of Agriculture & Natural Resources sent the following letler (Appendix 36) to counsel foi the applicants in answer to his previous letters and communicated the contents thereof to the Director-General of the Ministry of Finance, the Chair­ man of the Authority and the Senior Officer of the Authority :" Έ χ ω εντολή από τον Υπουργό Γεωργίου και ΦυσικώνΠόρων ν' αναφερθώ oris επιστολές σας, με αρ. 40/83, ημερομηνίας 30.6.1983 και 26.8.1983, σχετικά με την ένταξη των υπαλλήλων της Αρχής Αναδασμού στη Δημόσια Υπηρεσία και να σας πληροφορήσω ως ακολούθως:- 15 (α) Οι υπάλληλοι της Αρχής Αναδασμού εξακολουθούν να υπηρετούν με τους όρους Υπηρεσίας, τα Σχέδια Υπηρεσίας και τις κλίμακες που αρχικά διορίστηκαν. 20 (β) Ύστερα από διαπραγματεύσεις που έγιναν από τη Συντεχνία των Υπαλλήλων (Ε.Υ.Α.Α.Κ.), οι υπάλληλοι της Αρχής Αναδασμού οι οποίοι ενημερώθηκαν από τη Συντεχνία τους γ ι α τις λεπτομέρειες της ένταξης στη Δημόσια Υπηρεσία, αποφάσισαν, κατά πλειο­ ψηφία, σε γενική συνέλευση τους, να ενταχθούν στη Δημόσια Υπηρεσία. 25 30 35 (γ) Οι πελάτες σας, οι οποίοι κατέχουν θέση Λειτουργού Αναδασμού και όχι Τοπογράφου-Μηχανικού,θα πληρο­ φορηθούν γ ι α την κλίμακα τοποθέτησης τους όταν θα τους προσφερθεί επίσημα διορισμός στη Δημόσια Υπηρεσία, μετά την έγκριση του σχετικού Νομοσχεδίου και τη συμπλήρωση των απαιτούμενων διαδικασιών. Η ένταξη τους στη Δημόσια Υπηρεσία θα γίνει με τους ίδιους όρους ως και για τους υπόλοιπους Λειτουργούς Αναδασμού. (Β) Το θέμα της βαθμολογικής και μισθολογικής διάρθρωσης τών θέσεων στο νέο Κυβερνητικό Τμήμα Αναδασμού είναι αρμοδιότητα του Υπουργείου Οικονομικών στο οποίο διαβιβάστηκε αντίγραφοτων πιο πάνω επιστολών σας". ("I am instructed by the Minister of Agriculture and Natural 1019 Stylianitks J. Mavrommatis and Others v. Republic
(1984)Resources to refer to your lotters, ref. No. 40/83 dated 30.6.1983 and 26.8.1983 in respect of. the emplacement of the officers of the Land Consolidation Authority in the Public Service and to inform you as follows: (
  1. a)The officers of the Land Consolidation Authoiity continuetoseivewith theconditionsof service, schemes of service andthescales with which they were originally appointed. (
  2. b)After negotiations between Union of Employees (E.Y.A.A.K.), the officers of the Land Consolidation Authority who were informed by theii Union for the details of their emplacement in the Public Seivicc, decided by majority, in a geneial meeting, to be emplaced in the Public Service. 5 10 (
  3. c)Your clients, who hold the Post of Land Consolidation 15 Officer and not Topographer-Engineer, will be in­ formed of the scale of their posting when an offer is officially made to them by the Public Seivice Com-. mission after the approval of the lelevant Bill and the completion of the necessary procedure Theii omplacc- 20 ment in the Public Service will be made on the same terms as foi the rest Land Consolidation Officeis. (
  4. d)The subject of the evaluation and salaiy structure of the posts in the new Government Land Consolidation Department is within the competence of the Ministiy of Finance to which a copy of your above letters has been forwarded"). 25 On the following day, 17th September, 1983, the Chairman of therespondentAuthority addiessed aletter of similar contents to counsel for the applicants in Cases No. 420/83 and 447/83. 30 Thereafter these recourses weie filed whereby the applicants pray:"1. Δήλωση του Δικαστηρίου με την οποία να κηρύσσεται άκυρη και/ήπαράνομη η διαρκής άρνησηκαι/ή παράλειψη του καθ*ούηαίτηση No. 1ναπροχωρήσεισε αξιολόγηση/ 35 αναδιοργάνωση των θέσεων, κλιμάκων και μισθών των αιτητών πριν την με την τροποποίησητου Νόμου ένταξη των αιτητών στην Δημόσια Υπηρεσία. 1020 3 C.L.R. Mavrommatis an! Others v. Republic Stylianides J. 2. Δήλωση του Δικαστηρίου πως ότι παραλήφθηκε έπρεπε και πρέπει να διενεργηθεί. 5 10 3. Δήλωση του Δικαστηρίου με την οποία να κηρύσσεται σαν παράνομηκαιάκυρηη απόφαση των καθ' ων η αίτηση και/ή οποιονδήποτε από αυτούς με την οποία κατατάγησαν ή εντάχθησαν οι αιτητές σε κλίμακες αντίστοιχες με της Δημόσιας Υπηρεσίας χωρίς να τηρηθεί η Νόμιμη διαδικασία βάση του Νόμου 24/69 (όπως τροποποιή­ θηκε από 52/71, 8/73 και 18/83) και/ή χωρίς νατους δοθεί η ευκαιρία να ακουστούν και/ή χωρίς να προηγηθεί η αξιολόγηση/αναδιοργάνωση των κλιμάκων θέσεων και μισθών της Αρχής Αναδασμού. 4. 15 20 Δήλωση του Δικαστηρίου μετην οποίαναμη επικυρώνεται η τταράλειψη και/ή απόφασητων καθ' ών η αίτηση όπως στα υπό
(1),
(2)και
(3)πιο πάνωαναφέρονται". ("
  1. A declaration of the Court that the continuing refusal and/or omission of respondent No. 1to proceed with the evaluation/restructuring of posts, scales and salaries of the applicants before their emplacement in the Public Service by the amendment of the Law is void and/or unlawful.
  2. A declaration of the Court that what was omitted ought and must be done. 25 30
  3. A declaration of the Court that the decision of the respondents and/or any of them whereby the applicants were placed and or posted on scales corresponding to those of the Public Service without observing the legal procedure under Law 24/69 (as amended by Laws 52/71, 8/73 and 18/83) and/or without being given a chance to be heard and/or without theprecesion of the evaluation /reorganisation of the scales of the posts and salaries of the Land Consolidation Authority is declared unlawful and null.
  4. 35 A declaration of the Court whereby the omission and/or the decision of the respondents undci
(1),
(2)and
(3)above should not be ratified"). Counsel for the respondents in his opposition contended that the act or omission complained of is not a decision, act oi omi:»1021 Siyliinides J. Mavrommatis and Others v. Republic
(1984)sioi within the sense of Article 146.1 of the Constitution and, the efore, is not justiciable, and further that the applicants 'acl; legitimate interest as they consented to their emplacement and'or posting on the corresponding scales of the civil service. These points were taken upaspreliminary points of law and couusel filed written addresses theieon. 5 Acollectivelabour agreement doesnot create rightsofpublic law. By itself, an agreement creates neither rights nor docs il impose obligations in the field of public law. lit Kontemeniotis v. C.B.C.,
(1982)3C.L.R. 1027,at p. 1032, 10 a Fall Bench case,the Court in dealing with a collectiveagieeraer tbetweenatradeunionandtheCyprusBroadcastingCoiporation had this to say:"In ourjudgment, the provisions of a collective agreement lack the force of law in that, unless adopted as part of 15 the regulations of a public body, they have no application in the domain of public law". Rightsinthedomain ofpubliclawarederivedfrom theConstitution, the statute laws and the subsidiary legislation made thereunder. (See further Paphitis & Others v. The Republic, 20
(1983)3 C.L.R. 255, at p. 261). Acollective agreement is distinguished from a "public contract" as this expression is used in the U.S.A. and adopted in theRepublic v. Menelaou,
(1982)3 C.L.R. 419,at p.431. There isa further obstacle tothecontention of theapplicants 25 thattheyacquiredanyrightsinthesphereofpubliclaw: Section 4{l)(b) of the Land Consolidation Law, No.24/69,asamended by s.2 of Law No. 8/73, subjects all acts and decisions of the Authority to the approval of the Council of Ministers. Therefore, anyactordecisionoftheAuthorityrelatingtothestructure 30 of the services and the posts of the Authority, the scheme of service,thegeneralrulesofservice,etc.,aresubjecttotheapproval of the Council of Ministers. Failing such approval they are not legally valid, not binding even on the Authority and not creating any legal results. The applicants derived no right 35 from the alleged collective agreement. An "omission" inthesenseofArticle 146of the Constitution meansan omission todosomethingrequired bylaw,asdistinct 1022 3 C.L.R. Mavrommatis and Others v. Republic StylianW 5 .1, from the non-doing of a particular act or the non-taking ofa particular course as a result of the exercice of discretionary powers. "Omission" presupposes a duty imposed by law imd failure to perform that duty—{Stassinopoulos—The Law of 5 Administrative Disputes, 4th edition,
(1964), p. 195; Gwek Council of State Cases No. 1137/63,91/62 and 1862/63; Cyp-ux Tannery v. Republic,
(1980)3 C.L.R. 405; Argyrou and Oth?rs v. Republic,
(1983)3 C.L.R. 474, at p. 484). If a person accepts an administrative act or omission unve10 servedly, he no longer possesses a legitimate interest entitling him to make a recourse against it in the sense of Article 146.2 of the Constitution. Acceptance by the tiadc union of the new agreement, £\\ aforesaid, is acceptance by each one of the members sepaiatcl·' 15 and at any,iate depiives their union a m the applicants fioii any legitimate interest, if they had any. Triantafyllidcs, P., in Myrianthis v. The Republic, (19771 3 C.L.R. 165, said:20 25 "It is well established, by now, in the administiative law of Cyprus, on the basis of relevant principles which have been expounded in Greece in relation to a legislative provision there (section 48 of Law 3713/1928) which corresponds to our Article 146.2 above, that a person, who, expressly or impliedly, accepts an act or decision of the administration, is deprived, because of such acceptance, of a legitimate interest entitling him to make an administrative recourse for the annulment of such act or decision". See, also, Tompoli v. CY.T.A.,
(1982)3 C.L.R. 149; and N. 30 Ionides v. The Republic,
(1979)3 C.L.R. 679. The two Ministers on the authorisation of the Council of Ministers dealt with the matter and introduced Bill No. 17 to the House for the emplacement of the servants of the respondent Authority in the civil service of the Republic. Though 35 the function of the Council of Ministers under Art. 54(f) is described as "executive power", a function preparatory to, and connected with, the enactment of legislation, is the exercise of a legislative power. Legislative power consists not only 1023 Stylianides J. Mavrommatis and Others v. Republic
(1984)of the deliberation and enactment of laws by the legislative organs but, in a wider sense, it also includes the preparatory and ancillary activities in the course of the legislative process. This is recognized in all countries with constitutions drawn up on the basis of the doctiine of the separation of powers. 5 Therefore, the consideration by the Council of Ministers Bills to be introduced to the House of Repiesentatives is an act preparatory to legislation and for this reason it does not amount to theexerciseof"executive or administrative authority" in the sense in which such words are used in paragraph 1 of 10 Article U6—(Papaphilippou v. The Republic, 1 R.S.C.C. 62). The applicants were not adversely affected. They continue to be on the scales that they were, and they have no legitimate interest. For the reasons aforesaid I am of the view, and so hold, that 15 the applicants have no legitimate interest and that the act or omission complained of is not justiciable. In the result these recourses are dismissed but in the circumstances I make no order as to costs. Recoursesdismissed. No order 20 as to costs. 1024

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AI explanation based on the official legal text. Indicative, not a substitute for legal advice.