(1988)1988December13 [STYLIANIDES,J.] INTHEMATTEROFARTICLE146OFTHECONSTITUTION LAKISZOTIADESANDOTHERS, Applicants. v, THEREPUBLICOFCYPRUS,THROUGH THEPUBLICSERVICECOMMISSION, Respondents. (CaseNo. 237187.262/87,340187). Public Officers—Appointments/Promotions—firstentry andpromotion post-—Qualifications—Additional qualifications—Scheme of Service— Interpretationandapplicationof—JudicialControl—Principlesapplicable. Public Officers—Appointments/Promotions—first entry and promotion post—Qualifications—Additionalqualifications—Dutytocarryoutdueinquiryastopossessionbycandidatesofsuchqualification—Inthiscase,beforetakinganydecisioninthematter,theCommissionsoughtandobtained theopinionoftheBritishCouncilregardingthequalificationsofinterested party—InthecircumstancestheCommissioncarriedoutadueinquiry. Public Officers—Appointments/Promotions—First entry andpromotion post—Qualifications—Additionalqualifications—Factthatonaprevious occasion theCommissiondecidedthatacandidate didnotpossesssuch qualification—DoesnotpreventCommission,withdifferentcomposition, \ toconductafreshamorethoroughinquiryandreachadifferentconclusion. Public Officers—Appointments/Promotions—First entry and promotion post—Qualificationsnotevisagedas anadvantage inthescheme ofservice—Weight—Donotestablishbythemselvessuperiority. PublicOfficers—Appointments/Promotions—Firstentryandpromotionpost— 2440 3 CX.R. 5 Zotiades & Others v. Republic Confidentialreports—Candidatesholdingposts ondifferent hierarchical level—Commissionthoughtthatnoabsolute comparison could be made andnotedtheratingsoftheinterestedparty whenheheldapplicants post andfinallyrecorded theratingsofthecandidatesfor thelast sixyears— Suchacoursewasreasonablyopen tothe Commission. Public Officers—Appointments/Promotions—Striking superiority—Meaning PublicOfficers—AppointmentsSPromouons—JudicialControl—Principlesapplicable—Zachariadesv.TheRepublic
(1986)3 CJ*M. 852reiterated. 1U 13 ^ Theapplicantsinthese recourseschallengethevalidityof theappointmentof the interestedparty to thepost of Director.General Laboratory, Ministryof Health.Hayingrecapitulated theprinciplesgoverningjudicial controlofAppoinments/Prornotions,oftheinterpretationandapplicationof aschemeof service,aswell astheprinciplesestablishingtheneedfordue inquiry as to possession by candidates of additional qualifications envisagedasanadvandage intheschemeof service, theprinciples governing theweighttobegiven tohigherqualifications notenvisagedasanadvantageintheschemeofserviceandhavingreferredtothenotionof "striking superiority"and,finally havingapprovedoftheCommission'sapproachin respectof confidential reportsofcandidatesholdingdifferent postsinthe hierarchical ladder,theCourtreached theconclusion, thaton the facts of . thiscase,therecoursesshouldbe dismissed. RecoursesdismissedJ Noorderastocosts. 25 Casesreferredto: FrangoullidesandAnotherv.PublicServiceCommission
(1985)3C.L.R. 1680; Papapetrou v.TheRepublic,2R.S.C.C.61; Pestas v.TheRepublic, 3R.S.C.C.60; 30 GeorghiadesandOthersv.Republic
(1967)3C U * . 653; Tryfonv.Republic
(1968)3Cl^SL 28; 2441 Zotiades &Others v. Republic
(1988)Kyriacouv.Republic
(1975)3CLA. 37; Skarparisv.Republic
(1978)3C.L.R. 106; MytidesandAnotherv.Republic
(1983)3C.L.R.1096; RepublicandAnotherv.Kastellanos
(1988)3C.L.R. 2249; MichaelandAnotherv.PublicServiceCommission
(1982)3CLR.726; 5 Karisv.Republic
(1985)3 C.L.R. 496; Philippidesv.Republic
(1986)3CLJ*.160; Hjiloannou v.Republic
(1983)3C.L.R.1041; Bagdadesv. TheCentralBankofCyprus
(1973)3C.L.R. 417; 1 0 Republicv.Zachariades
(1986)3 CL.R.
- Recourses. Recourses against thedecision of therespondents topromote theinterestedparty tothepostof Director of General Laboratory of theMinistry of Health inpreference and instead of the appli cants. ΛC G. Triantafyllides, for applicants in Cases Nos. 237/87 and 340/
- K. Talarides, for applicantin Case No. 252/
- A. Papasavvas, Senior Counsel of the Republic, for the re spondents. Ch.lerides, for interested party. Cur. adv. vult. STYLIANIDES J.read thefollowing judgment. The post of Directorof GeneralLaboratory of theMinistry of Health became 2442 20 3CX.R. Zotiades&Othersv.Republic Stylianides J. vacantbyretirementofitsholder. 5 Duringtheperiodoftheleave,priortoretirement,theprocess ofthefilling of thepostcommenced.Asthisisafirst entryand promotionpost,itwasadvertisedintheOfficial Gazetteof 12th September, 1986,Notice
- On 10thMarch, 1987,thePublic ServiceCommission ultimatelypromotedtothepostIoannisLovarides(theinterestedparty)-a SeniorAnalystof theGeneralLaboratory,apostjustbelowthatoftheDirector-witheffect from 15thMarch,1987.This 10 promotion waspublished intheOfficial Gazetteon 10thApril,
- Twoofthecandidates,LakisZotiades,whowasnotapublic officer, andAntoniosCharalambides,apublicofficer, challenged thevalidityoftheaforesaidpromotion. 15 Zotiadesfiledtworecourses -Recourse No.237/87 on28th March, 1987andRecourseNo.340/87on28thApril,1987,after thepublicationofthedecision.Thiswascertainlydoneasaprecautionarymeasurelestthefirstrecoursewouldhavebeenconsideredaspremature.Theyareidentical. 20 Thesolegroundonwhichthisapplicant seekstheannulment • •ofthesubjudicedecisionisthattheCommissionlabouredunder a misconception of fact, inconcluding thattheinterested party possessedtheadditionalqualification prescribedintheschemeof service,whereas infacthelackedsuchqualification. 25 TheapplicantinRecourseNo.262/87challengedthevalidity ofthesubjudicedecisiononthesamegroundandonthe further grounds thatthe Commission erredontheproper evaluationof thequalificationsoftheapplicantandthatitdidnotattributethe appropriateweighttothem;iterredintheevaluationoftheconfidentialreportsof theapplicantandtheinterestedparty, whoboth werepublicofficers, andfinally,theCommission,didnotselect thebest suitable candidate for thepost, whoin all thecircum- 30 2443 Stylianides J. Zotiades&Othersv. Republic
(1988)stances,was thisapplicant whois strikinglysuperiortotheinte restedparty. ADDITIONALQUALIFICATION; Postgraduatequalification inChemistry is,underthe scheme of service, an additional advandage. (Μεταπτυχιακό προσόν 5 στηνΧημεία θααποτελεί πλεονέκτημα). Itwas contended by theapplicantsthat onapreviousoccasion andparticularly on21st April, 1986,theCommissioninthepro cessoffillingthesamepost decidedthatthisinterestedparty was notpossessedof thisadditionalqualification.(See minutesofthe 10 Commission-21st April 1986, p.4). OnthatoccasiontheCommissionwasdifferently composed. Furthermore, they reached their conclusion only by going throughthedocumentsinthepersonalfileoftheinterestedparty. Inthepresentinstancetheycarriedafurtherinquiry with theBri- 15 tishCouncil. InFrangoullides andAnother v.Public Service Commission
(1985)3 C.L.R. 1680, Triantafyllides, P. , in delivering the unanimousJudgmentof theFullBench,saidatp. 1685:"It is correctthatonanearlieroccasion when thetwo ap- 20 pellants were again candidates for promotionto thepost of PrincipalWelfare Officer therespondentCommission, which was atthetimedifferently composed,treatedbothof them as being qualified underthe same schemeof servicebut,inour view, this did notprevent theCommission from reaching a 25 different conclusion on thepresent occasion after amuch more thorough inquiry intothematter.Irrespective of what had been doneonthe saidearlier occasion theCommission could not lawfully, and in a proper exercise of its relevant powers,consideraseligiblefor promotiontothepostofPrin- 30 cipalWelfare Officer eitherof the appellantsonceitwas not satisfied thattheywerequalified for promotionunderthe rele2444 ν ^Ν 1 3 CXJC -.^ Zotfautes-& Othersv. Republic- vantschemeofservice." ^J~. - '-" ' 5 Stylianides J. z -~ On23rdlanuary,J987^hie^IrectofiGeneraliof the^Ministry ofHealthsentwritten^ommunicjdon his observations ontwomatters:Thepost^iduateJlualification and theconfidential reports: '"^ρ&ΐϋ- " i ^' With regard totheinterestwTpafty hewrote thatinhis opinion thecoursesfollowed byhimdidnotconstitutepostgraduatequali fication inChemistryasrequiredbytheschemeofservice. 10 15 20 TheCommissionon27thJanuary, 1987,consideredthe matteranddecidedtocany outahinquiry by applying totheBritish : Council. • ' •*- J TherespondentCommission applied tothe British Council at tachingthetwocertificates heldby theinterestedparty,issued to himby the TropicalProducts Instituteof LondonandtheShirley Institute, Manchester,respectively and inquired.whether these programmesof study arepostgraduatecourses. ' "" The British Councilin Nicosiareferred this request totheir London office andthereply is containedin a letter,dated24th February,1987 - Appendix 14of theOpposition.I'quoteverbatim thematerialpartofthisletten"Thankyouforyourletterof 4FebruaryfileNo23/81 con cerning-the programmes of study offered by Tropical ProductsInstituteLondonandShirley InstituteManches- 25 30 Your request has been refened, toourLondon Office andtheirreply isasfollows: Shirley Institute: isaTextUeTesearchcentre. WithinTex tile Tradeconsiderededucationalbody. Donotclassify pro grammesasunderorpostgraduatelevel.Noformal qualificationsneededexceptforbasicLabTechniquestogoonthe 2445 StylianidesJ. Zotiades& Othersv.Republic
(1988)10weekprogramme. TropicalProductsInstituteCentreispartofoverseasDevelopment Admin, and is concerned with/to study of PostHarvestproblemsinPlantandAnimalResourcesintheDeveloping World.AhighpriorityintheInstituteisspecial 5 training of personnel from Developing Countries in this field. Thecourseyouquoteinyourminuteistaughtatthe institute. Ihopetheaboveisofhelptoyou." On 10thMarch, 1987,theCommissiononthebasisofallthe 10 materialbeforeit,includingtheletteroftheBritishCouncil,inthe exerciseof itsdiscretionarypower,reached theconclusion that theCoursesoftheShirleyInstituteandtheTropicalProductsInstituteCentreconstitutetheadvantagelaiddownintheschemeof service. ApplicantZotiades,longafterthefilingoftheserecourses,on 1lth September, 1987,appliedtotheOverseasDevelopmentNatural Resources InstituteandtheRoyalSocietyof Chemistry for theiropinion.Thereplies,dated 15thSeptember, 1987and22nd September, 1987 arcAppendices2and3tothewritten address 20 ofhisadvocate. According totheTraining Officer of theOverseasDevelopment Natural Recourses Institutte certificates issued totrainees whohavestudiedattheOverseasDevelopment Natural ResourcesInstitute,oranyofitspredecessors,arecertificates of atten- 25 danceonlyandinnowayaformal qualification. The answer of the Royal Society of Chemistry reads as follows:"TheSocietydoesnotformally evaluateshorttrainingprogrammessuchasthoseyoudescribe.Neitherleadtoaformal 30 recognised qualification andIamtoldthattheprogrammeof 2446 15 3 C.L.R. 5 Zotiades&Othersv. Republic Stylianides J. trainingattheShirley Institutewouldhavecontainedverylittle chemistry. The training at the Tropical Products'Institute, which would havebeenmorechemically based,led"onlytoa certificate of completion andnotanassessedaward. Ido not therefore considerthatthetwo programmes of studies, even takentogether would beregardedby theSociety astheequiva lentofapostgraduatequalification inchemistry." Theinterpretationandapplicationof theschemeof service is within thediscretionary powerof theCommission. Thepowerof ΙΟ theSupremeCourtis limited toreviewing theexerciseof their - discretion.Solongastheirdecision was onethatwas reasonably open,both as amatterof construction of the schemeof service ' andasrespects its application tothesituationof the candidates, there is no room for interference, notwithstanding a different ,e opiniononthepart of the Courtoneitherof two subjects. The Courtwillnotgivetosuchschemeadifferent interpretation other thanthatgiventoitbytheCommission,providedthatsuch inter pretationwasreasonablyopentoitonthebasisofthewordingof theschemeinquestion-'(Theodoros G.Papapetrou andtheRe public (PublicService Commission), 2 R.S.C.C.61;-at p. 69; Christoforos G. Petsas amdtheRepublic (Public Service Com mission), 3 R.S.C.C.60;Athos G. Georghiades and Others v.· Republic(PublicServiceCommission)
(1967)3C.L.R.653; An dreasTryfon v.Republic(PublicService Commission)
(1968)3 C.L.R.28;CostisKyriacouv.Republic(PublicServiceCommis2 5 sion)
(1975)3 C.L.R. 37; Skarparis v. Republic
(1978)3 C.L.R. 106;Mytides andAnotherv.Republic
(1983)3C.L.R. 1096; Republic and Another v. Kastellanos
(1988)3 C.L.R. 2249). 30 Theapplicationby theCommissionof aschemeof serviceto thecircumstancesofeachparticularcasehastobemadeaftersuf ficient inquiry regarding all material considerations-(Athos G. Georghiades and Othersv.Republic (Public Service Commis sion) (supra)atp.*668). 35 TheCommissionhasastatutory obligation toinquireandde2447 StylianidesJ. Zotiades& Othersv.Republic
(1988)cideforitselfwhetheracandidatepossessestheadditionalqualificationprovidedintheschemeofservice.Thisisasinequanonto any further stepsin theprocessof theexerciseof itsdiscretion andsuchaninquiryhastobeapparentintheminutesoftheCommission - (MichaelandAnotherv.PublicService Commission 5
(1982)3C.L.R.726;Karisv.Republic
(1985)3C.L.R. 496). InPhilippidesv.Republic
(1986)3C.L.R. 160Sawides,J. saidatp.166:"The interpretationandapplicationoftheschemeofservice aswellastheevaluationofthequalificationsofcandidatesare 10 matterswithinthediscretionarypoweroftheP.S.C. andthis \ CourtwillnotinterfereifitwasreasonablyopentotheP.S.C todecideasitdid," Andatpp.168-169:"TheP.S.C. isan administrative organ vested with adis- 15 cretionarypowertointerpretandapplytheschemesofservice andinconsequencetoevaluatethequalificationsofcandidates anddecidewhoisqualified undersuchschemes.Inexercising suchdiscretion,however,anadministrativeorganshouldconductaproperinquiryintotheparticularmatter,thenatureof 20 whichvariesaccordingtothecircumstancesofeachparticular case.TheP.S.C,unlessotherwiseprovidedbylaw(whichis notthecaseinthepresentinstance),istreetodecidewhatproceduretofollowinordertoascertainandevaluatethequalificationsofcandidates." 25 InthepresentcasetherespondentCommission appliedtothe BritishCouncil,whichinitsturnsentthetwo certificates ofthe interested party to the Central Office of the British Council in London.They laboured on thetwocertificates andthereplyof the British Council. This was a perfectly valid procedure for 30 them,whichwasreasonableunderthecircumstances.Theycarriedoutadueandsufficient inquiry.Onthematerialbeforethem, the challenged conclusion was reasonably open to them and, 2448 3 C.L.R. Zotiades &Othersv.Republic Stylianides J. therefore,thisCourtcannotinterferewith it Ithadtobenotedthattheschemeof servicedoes notrequire .any"formal11,postgraduatequalification suchasM.Sc. andPh. D. Thewording is "μεταπτυχιακόπροσόν". 5 QUALIFICATIONSOFAPPLICANTINCASENO.262/87: TheapplicantinCaseNo.262/87 complainsthattheCommis sionfailed toevaluate properly hisqualifications anddidnot at tributetothemtheappropriateweight > . IntheminutesoftheCommissionweread:- 10 15 20 * " ΗΕπιτροπήαπόδωσε επίσηςτηδέουσασημασία στα προσόντα όλωντωνυποψηφίων καισημείωσε ότι οιΧαραλαμπίδηςκαιΜιχαήλυπερτερούνσ'αυτά,αφούδιαθέ τουν Ph.D. Ωστόσο,όπως είναι διατυπωμένο τοΣχέδιο Υπηρεσίας,το,πλεονέκτηματοδιαθέτουνόχιμόνο.αυτοί αλλάκαιάλλοι, οιοποίοικαι αναφέρονταιπιοπάνω." , Thecontentionof counselfor thisapplicant,thatthe Commis sion did notpay dueregard tothesuperiorqualifications of his client,is notbornoutfrom theminutesof theCommission. On thecontrary,theCommissiongavecogentreasonswhy theinterestedpartywas preferred. Itiswellestablished thatpossessionof academic qualifications additionaltothoserequiredby theschemeof service,which are .notspecifiedintheschemeofserviceasanadvantage,shouldnot weighgreatlyinthemindoftheCommissionwhichwoulddecide 25 inselecting diebestcandidateonthetotalityof thecircumstances before them-(Hjiloannouv.Republic
(1983)3C.L.R. 1041). 2449 Stylianides J. Zotiades&Others v.Republic
(1988)CONFIDENTIALREPORTS: It was submitted by counsel of applicant in Case No.262/87 thatthesubjudicedecision is faulty inthattheCommissionerred in theevaluation of theconfidential reports of theapplicantand theinterestedparty,whoarebothpublic officers. 5 TheCommissionhadbefore itthepersonalfilesandtheconfi dentialreportsof thecandidates, whoarepublic officers. Thisapplicantjoined thePublic Service as Chemist,ClassΠ, intheDepartmentofGeological Survey on 1stAugust,1978.On 1st November, 1981,hewas promotedtothecombined post of 10 Geological Officer, ClassI. Theinterested party, bornon2ndJanuary, 1928,enteredthe Service on 20th September, 1956, as Assistant Analyst in the Medical Department.He was emplaced in thepost of Analyst, Class I,with effect 1st January, 1972..Hewas promotedtothe 15 post of Senior Analyst in theGeneralLaboratory, with effect from 1stOctober, 1981. Theconfidential reports of theapplicants -public officers werebefore theCommission. { Therewerenoconfidential reportsfor 1986 as theycouldnot 20 bepreparedfor thereasons statedinthedocumentsandinthema terialplacedbefore theCommission. TheCommission approachedtheconfidential reports, asstated initsminutes,with special care. Havingregardtothefact thatthe interestedparty asfrom1982 was evaluated intheconfidential re- 25 portsinthepostof SeniorAnalyst, whereas theotherpublic offi cers -candidates wereholding lower post,noabsolutecompari son (απόλυτη σύγκριση) could be madeonthebasisof these confidential reports.TheCommission,further, notedthatwhen theinterestedpartywas servinginthelowerpost, theoneheldby 30 theapplicant incase No. 262/87, hewas rated "excellent". The 2450 3 C.L.R. Zotiades &Othersv. Republic Stylianides J. Commission then recordedintheir minutestheratinginthecon fidential reports,for thesix years 1980-1885, inclusive, for each Λ onethecandidates. * Itwas submitted thatthisapproach was erroneous. 5 10 Iamof theopinion thatif was within theboundof thepower of theCommission, intheprocess offindingthemerits andde meritsof thecandidatesandinmakingthenecessary .comparison between them,toresorttothis;approach. This approachwas rea sonably open to the Commission. The Commission took into condiderationthewholecareerof thecandidates-public officers. SELECTIONOFBEST SUITABLE CANDIDATE- STRI KING SUPERIORITY. 15 20 25 Thelast,butnotleastof thecomplaintsof Mr. Talarides isthat therespondent Commission failed in its duty to select thebest suitable candidate,who,inthecircumstanceswas hisclient,who is strikinglysuperior totheinterestedparty. The Commission took intoconsideration all thefactors laid down by law -merit,qualifications andseniority. The seniority of theinterested party Lovarides is overwhelming. Hewas appointedin thePublic Service in 1956 and was theholderof the postequivalent tothepostpresently heldby theapplicantas from 1stJanuary, 1972,morethansix yearsbefore theapplicant-joined thePublic Service. As from 1st October, 1981, hewas Senior Analyst,whereas theapplicanton 1st November, 1981 was em-. placedinthescalesandtheposttheinterested party was holding nineyearsearlier. Partof themeritis depictedintheconfidentialreportstowhich reference wasmade. 30 Theschemeofserviceprovides atleasttenyearspost- graduateexperiencerelevantwiththevarious functions(αρμοδιότητες) of theGeneralLaboratory,outofwhich atleastfiveyearsadmin2451 StylianidesJ. Zotiades& Othersv.Republic
(1988)jstrativeexperience*.Thisqualification maybeco-related tothe dutiesofthepostassetoutintheschemeofservice. TheDirector-GeneraloftheMinistrysaidabouttheinterested partythathehasexperienceveryrelevanttothepostoftheDirectoroftheGeneralLaboratoryandverysatisfactory administrative 5 experience. The notion of striking superiority was defined by the Full BenchinHjiloannou v.Republic(supra).Additionalacademic qualifications tothoseprovidedbytheschemeof servicedonot indicatebythemselvesastrikingsuperiority. 10 Hadjianastassiou J.,in KyriacosG.Bagdadesv.TheCentral BankofCyprus
(1973)3C.L.R.417,atp.428observed:^ a d itbeenotherwise,Iwouldbeinclinedtotheviewthat therewouldbenoreason ininvitingothercandidatesforthat particular post once they knew in advance that amongst the 15 candidatestherewasapersonwithhigherqualifications." The applicant has not established to the satisfaction of the Courtthathewasstrikinglysuperiortotheinterestedparty. Thiscasehastobedecided ontheprinciplesrecapitulatedin Republicv.Zachariades
(1986)3C.L.R.852,thatanAdminis- 20 trativeCourtdoesnot annuladecisionofanappointingauthority,suchastheappellantCommission,which,inaccordancewith thelawapplicableto,andthefactsof, aparticular case,wasreasonablyopentosuchauthority;andsecondly,thatanAdministrative Court does not, in acase of this nature, substitute itsown 25 discretionasregardsthechoiceofthemostsuitablecandidatefor promotion or appointment in theplace of thediscretion of the competentorgan. Andatp.856itwassaid:"Also,weareof theviewthatthethreecriteria which are 30 2452 3 C.L.R.. Zotiades & Othersv.Republic StylianidesJ. setoutinsection44
(3)of thePublicServiceLaw,1967(Law 33/67)*namelymerit,qualifications andseniority,havetobe weighed together,bearinginmini too,theperformance of thecandidateswheninterviewed,whichisaprocesshelpingin theevaluationofthecandidatesjmaihiyftom'thepointofview ofmerit and,also,tocertainextent,ofqualifications aswell. Anappointingauthority,suchastheappellantCommission, when weighing together the said threecriteria, inorder to findthe most suitable candidate, may attribute such significancetothemasitmaydeemproper,providedthatitexercises correctly,inthecourseofdoingso,itsrelevantdiscretionary powers(seetheGeorghioiicase, supra,82)':anditisnotprovidedbysection44
(3)thatanyoneofthethreecriteriahas,in anyevent,greaterimportancethantheothertwo." Foralltheforegoingreasons,therecoursesaredismissedand thesubjudice decision of the Commission isconfirmed, under Article146.4(a)oftheConstitution. Lettherebenoorderastocosts. Recoursesdismissed. Noorderastocosts. 20 2453