3 C.L.R. 1988Dec«nbsl5 [STYLIANIDES.J.] INTHEMATTEROFARTICLE 146OFTHECONSTITUTION GLAFKOSGEORGHIOUANDOTHERS, Applicants, v. THEREPUBLICOFCYPRUS,THROUGH 1.THEPUBLICSERVICECOMMISSION, Ζ THEMINISTRY OFFINANCE, Respondents. (CaseNo.858/87). PublicOfficers—Combinedestablishment—Schemeofserviceprovidingfor 3 years "service"in thelowerpost as a qualificationfor promotion to the higherpost—in computingtheperiod of "service"itwas reasonablyopen totherespondents toexcludetheperiod,whenapplicantwas serving asam casualofficer—TheCasualPublicOfficers(AppointmenttoPublicOffices) Law, 1985(Law 160185)—The definition thereinof "casualofficers" is specialandappliesonlyfor thepurposeofsuchlaw. ConstitutionalLaw—Equality—Constitution,Art. 78—Doesnotexcluderea sonabledistinctions—Schemeofservicefor apost inthePublic Servicere quiring "service"inalowerpost,whilst otherschemesfor otherposts re quire"experience"—Doesnotinfringetheprincipleofequality. . . On8.11.85 theapplicants were appointed in virtueof Law 160/85as Town Planning Officer, Class Π.Town Planning Officer, Class II and Class Iarecombined establishment Theschemeof service for the higher postprovided,interalia,foratleastthreeyearsserviceinthepostof Town Planning Officers,ClassII. The questions that arose for determination in this recourse were: a) Whether theperiod of applicants' serviceascasual officers should have 2473 Georghiou & Others v. Republic
(1988)beentakenintoconsiderationindeciding whetherapplicantspossessed the aforesaid qualification, and(b)Whether thescheme inquestion is repug nanttoArt 28 of theConstitutioninthat,whilstotherschemesrequire"ex perience",itrequires "service". Held,dismissing therecourse:
(1)Thedecision of theFull Bench in. 5 Sawa andAnotherv. ThePublicService Commission
(1988)3 CXJl. 102inwhich itwas saidnodistinctionismadeundersection2of thePublic ServiceLaw between holdingapostona"temporary" or"permanent"ba sis,doesnothelptheapplicants, because theywere notholdingbefore8th November, 1985,eitherapermanentoratemporarypost Theyweresim- 10 ply performing dutiesonacasualbasis.Theyhadnotbeenappointedbythe PublicServiceCommission. 2)Thedefinition of "casual officer" inLaw 160/85is aspecial defini tionfor thepurposes of thatlaw only. 3)"Service" inthecontextof theschemeofservicemeansserviceasdefined in section 2 of Law 33/67,after theappointmentof apublic officer bythePublicServiceCommission. 15 Theinterpretationgivenwasreasonably openandtheCourtdoesnotin terfere. 4)Thedifference intheschemeofserviceof theonepostfrom theother 20 isnotanarbitrary differentation, butadistinctionreasonablyjustifiableand doesnotinfringe theprincipleofequality,asthepostsare different. Recoursedismissed. Noorderastocosts. Casesreferredto: 25 SawaandAnotherv.PublicServiceCommission
(1988)3C.L.R. 102; Papaleontiouv.Republic
(1987)3C.L.R.211; Mikrommatis ν Vs Republic,2R.S.C.C.125; facovidesv.TU Republic
(1966)3CLR. 212; Fekka>. TheElectricityAuthorityof Cyprus
(1968)1CJ-JL 173; 2474 30 3 C.L.R. Georghiou &Others v.Republic Republicv.Arakian
(1972)3C.L.R.294; AngeUdesandOthersv.TheRepublic
(1982)3C.L.R.-774; PapaxenophontosandOthersv.TheRepublic
(1982)3C.LJU037; Trakoshisv.TheRepublic
(1988)3GLA.2118; Panayiv. TheRepublic
(1988)3C.L.R.2338. Recourse. , ' ,.> Recourseagainst therefusal oftherespondentstopromoteap plicants tothepostofTown PlanningOfficer, Class I. ; . AS. AngeUdes,for the applicants. • 10 A-Papasawas, Senior Counsel of the Republic, for there spondents. • _. . '•- . 15 20 25 Cur.adv.vult. STYLIANIDES J. read thefollowing judgment. Theappli cantsareTown PlanningOfficers, Class Π, intheTownPlanning and Housing Department. They were appointed tothe poston 8th November, 1985, invirtue of.the provisions andtheproce dure envisaged by the Casual Public Officers (Appointmentto Public Offices) Law, 1985, (LawNo. 160/85). Before theirsaid appointmenttheywereperforming dutiesascasual officers. Town Planning Officers, Class II, andClass I,arecombined establishment Undertherelevant scheme ofservice, whichwasapprovedby theCouncilofMinisterson 13thMay, 1982,forthepostof Class I,amongst therequiredqualifications are:Atleastfive yearspostgraduate experience, outof which atleast threeyears serviceat thepost of Town PlanningOfficer, GassΠ. 2475 Stylianides J. Georghiou & Others v. Republic
(1988)Promotionincases of officers with acombined establishment is governed by theproviso tosection44
(1)(a)of thePublicSer viceLaw, 1967 (Law No.33/67),which reads as follows;"44.-
(1)Noofficer shall be promoted to another office, unless(a) avacancy existsinthat office: Provided thatinthecaseof offices with acombined estab lishment, promotion from the lower to the higher office or grade of thatoffice may be made irrespectively of whether thereis avacancy in thehigheroffice orgrade ornot,andin 10 accordancewith anygeneraldirectionsgivenbytheCouncilof Ministersinthisrespect;" TheCouncilof Ministersby itsdecision 21.311of21stJanu ary, 1982,issued GeneralDirectionsgoverning thepromotionof officers inacombinedestablishment Thematerialpartsof these 15 Directionsrun asfolows:"
(1)Μετάτηνυπότουυπαλλήλουσυμπλήρωσαντηςπε ριόδου υπηρεσίαςτην οποίαν απαιτείτο οικείον Σχέδιον Υπηρεσίας εις την κατωτέραν τάξιν ή θέσιν, ο Τμηματάρχηςθααποστέλλη εις την Επι- 20 τροπή Δημοσίας Υπηρεσίας βεβαίωσιν κατά πόσον:(α)ουπάλληλοςεξετέλεσεν ικανοποιητικώςτακαθήκο ντατηςθέσεωςτου. (β)συνεπλήρωσε τηνπερίοδονυπηρεσίαςτην οποίαν 25 απαιτείτοΣχεδιονΥπηρεσίας. (γ) ικανοποιείτας οιασδήποτεάλλας απαιτήσειςτου ΣχεδίουΥπηρεσίαςκαι (δ)συνιστάαυτόνδιαπαραγωγήν: 2476 5 3 CLJt. 5 Georghiou & Others v. Republic Stylianides J.
(3)Ητελική απόφασιςδιάπροαγωγήντου υπαλλήλου εναπόκειται εις την Επιτροπήν Δημοσίας Υπηρε σίας συμφώνως προς τους περί Δημοσίας ΥπηρεσίαςΝόμους1967-1981.
(4)Οι οικείοι Τμηματάρχαιδεόν όπως προβαίνουν εις συστάσεις δι'όλουςτουςυπαλλήλους οιοποίοιπλη ρούνταΣχέδιαΥπηρεσίας, είτε αυτοίκρίνονταικα τάλληλοι διάπροαγωγήνείτε όχι. 10 „ ι
(6)Αι ως αρχαίθαεφαρμόζωνταιδι'όλους τουςδημο σίους υπαλλήλους οι οποίοι διωρίσθησαν υπό της ΕπιτροπήςΔημοσίαςΥπηρεσίας καιυπηρετούν εις συνδεδυασμέναςτάξειςήθέσεις." 15 2 0 ("
(1)After the completion by theofficer of theperiod of servicerequired by therelevant Scheme of Service of thelowerclassor post, theHead of Departmentwill forward tothePublic ServiceCommission a certificate astowhethen(a)theofficer performed satisfactorily thedutiesof his post; (
- b)has completed the period of service which is re quired by theSchemeof Service; „ (
- c)satisfies any otherrequirements of theScheme of Service; and (d)recommends himfor promotion: 2477 Stylianides J. Georghiou & Others v. Republic
(1988)
(3)Thefinaldecision for thepromotionof anofficer rests on thePublic Service Commission inaccordancewith thePublicService Laws, 1967-1981.
(4)Therespective HeadsofDepartmentmustmakerecom mendationsfor all theofficers whosatisfy theSchemes . 5 of Service,whethertheyareconsideredsuitable forpromotionornot.
(6)Theaforesaid principlesshall applyforallthepublic of ficers who were appointedby thePublic Service Comission andserveincombinedoffices orgrades.") 10 Nomatterof selection of thebest suitable candidatearises in thecaseofcombinedestablishment Theapplicantson6thMay,1987,requested theHeadoftheir Departmenttoforward tothePublicService Commissiontherele vantcertificates for theirpromotion,having takenintoconsidera- 15 don theyears of theirservice as casuals. TheHeadof theDepartmentdidnotaccedetotheirrequest, as theapplicantswere appointedon8thNovember,1985,and"ser vice" meanspublic service inanorganicpostandnotinacasual capacity. On 23rd May, 1987, heforwarded theaforesaid letterof the applicantstotheChairmanof thePublicService Commissionre questing advice. On 28thJuly, 1987, aletteremanatingfrom theoffice of the Public Service Commission andsigned for theChairmanof the 25 Commission was senttotheHeadof theDepartmentThemateri alpartof thisletterreadsasfollows:"Εχω οδηγίες να αναφερθώ στην επιστολή σας μεαρ. 20Q/14,200/3/134 καιημερ.235.87καινασαςπληροφορή σω ότι ορθά αναφέρετεστηνπαράγραφο 3της επιστολής 3° 2478 20 3 C.L.R. Georghiou & Others v. Republic Stylianides J. σαςότιυπηρεσίασημαίνειυπηρεσίασεοργανικήθέσηκαι όχιαπασχόλησηπάνωσε έκτακτη βάση. . ~
- Ύστερα από τα πιο πάνω και βάση τoυ^Σχεδίoυ Υπηρεσίας της θέσης Λειτουργού Πολεοδομίας, 1ης Τάξης,πουισχύει δενυπάρχει στο παρόν στάδιο δυνατό τητα προαγωγής στηθέσηΛειτουργού Πολεοδομίας, 1ης Τάξης;τωνπιοκάτωαπότουςυπαλλήλους,πουαναφέρε Μ τεστηνεπιστολήσας: , „ft; .. · 10 15 TheHeadof theDepartmentreplied totherequestof theapplicantsof 6thMay, 1987,inwriting on27thAugust,
- He re ferred tothepost,totheextract of the,letterof theChairmanof the Public Service Commission that "υπηρεσία σημαίνει υπηρεσία σε οργανικήθέση και όχι απασχόλησηπάνωσε έκτακτη βάση"(service means service in organic post andnot employment onacasual basis), andinformed themthatatpresent it was notpossiblefor themtobepromotedtothe post of Town PlanningOfficer, ClassI. >. ,r · • Theapplicantsbeingaggrievedfiledthisrecourse. Counselfor theapplicantsbased hiscase ontwolegs:20 (a)Theterm"service" in theschemeof servicewas erroneou sly interpreted; and (b) Ifthefirstgroundfails,thenthispartof the schemeofser viceis invalid, asit violates theprincipleofequalityenun ciatedandsafeguarded by Article 28of theConstitution. 25 Ά scheme of serviceis madeand/orapproved by the Council of Ministers underthepowers vested initby section29
(1)ofthe PublicService Law. ."Service" in thatLaw means public service and "public ser vice" isdefined inthesamesection. 2479 Stylianides J. Georghiou & Others v. Republic
(1988)Counselfor theapplicantssubmittedthattheterm"service" in theschemeof servicehadtobeinterpretedastocover theperiod theapplicantswere casually employed by theState. He reliedon section 46 of Law 33/67, as amendedby section 5of thePublic Service (Amendment)Law, 1983,(Law No. 10/83),which gov- 5 ems theseniority of thepublic officers andwhich reads as follows:"
- Η αρχαιότηςμεταξύυπαλλήλων κατεχόντωντην αυτήν μόνιμονήπροσωρινήνθέσινήτάξιντηςαυτής θέ σεως, είτε μονίμως είτε προσωρινώς είτε απόμηνός εις JQ μήνα είτε επί αποσπάσει,είτε επί συμβάσει, κρίνεται βάσειτηςημερομηνίαςτηςισχύοςτουδιορισμού,τηςπρο αγωγής ήαποσπάσεωςτωνειςτηνσυγκεκριμένηνθέσινή ταξιν,αναλόγως τηςπεριπτώσεως,ανεξαρτήτωςτουτρό πουκατοχήςαυτής." 15 He,also,reliedonthedefinition of "casualofficer" inthe Cas ualPublicOfficers (AppointmenttoPublicOffices) Law,
- He, also, referred to Revisional Appeals Nos. 480 and 484 ConstantinosSavva, andAnotherv. ThePublicServiceCommis sion,
(1988)3C.L.R. 102inwhich itwas said thatnodistinction ^n is madeundersection2of thePublicService Law between hold ing apostona"temporary" or"permanent"basis. I have no reason to disagree with theJudgment of theFull Bench, in which Iparticipated. The applicants, however, were notholding before 8thNovember, 1985,eitherapermanentora ^s temporarypost They were simply performing dutiesonacasual basis.They hadnotbeen appointedby thePublic Service Commision. Thedefinition inLaw 160/85is a special definition for thepurpose of thatLaw only andhas norelevance for thepur pose of theconstructionof theschemeofserviceinthiscase. _ "Service" is clearly distiguished from experience,the latter termcontainingthenotionof knowledge acquired throughacting inacertaincapacity.Experiencemay beacquiredby discharging duties. 2480 3 CL.R. ; Georghiou &Othersv.Republic Stylianides J. "Service"inthecontextoftheschemeofservicemeansservice asdefined insection2ofLaw33/67,after theappointmentofa publicofficer bythePublicServiceCommission. TheInterpretation given wasreasonably openand theCourt 5 ,does not interfere -(Papaleontiou v.Republic
(1987)3CL.R. 211,inwhichallthepreviouscasesofthisCourtarecited). Anumberof schemesof servicefor otherpostrequirethree yearsexperience.Itwascanvassedthatthiswasa differentiation adversetotheapplicantsandwasinfringement oftheir right to 10 equaltreatment ThisCourthasdealtexhaustively,formorethanaquarterofa century,withtheprincipleofequalityinnumerouscases,starting from ArgirisMikrommatisandTheRepublic(MinisterofFinance andAnother),2R.S.C.C. 125,atp. 131-(see,interalia,Iaco15 vosL.lacovidesandThe TheRepublic ofCyprus through The Republic Service Commission
(1966)3 C.L.R. 212, at.p. 224; Yiannis Fekkdv. TheElectricity Authorityof Cyprus
(1968)1 CX.R. 173,atp. 182; Republic (Ministry ofFinance) v. Nishan Arakian and Others
(1972)3 C.L.R. 294, at p. 20 302;AngeUdes andOthers v.Republic
(1982)3C.L.R.774,at p. 784;Papaxenophonotos and Othersv. Republic
(1982)3 C.L.R. 1037;Neophytos Trakoshis v.TheRepublic ofCyprus, through theAttorney-General andAnother,
(1988)3C.L.R. 2118 andloannis Panayiv. The Republic ofCyprus, through 2J ThePublicServiceCommission,
(1988)3C.L.R.2338). \ Havinggivendueconsiderationtothematter,Iholdtheview thatthedifference inthescheme ofserviceoftheonepostfrom theotherisnotanarbitrarydifferentiation. Itisadistinctionreasonablyjustifiableanddoesnotinfringe theprinciple ofequality, OQ asthepostsaredifferent Allthe holdersof the samepostare treatedequally. Ifindnomeritinthesubmissionofcounsel. 2481 StylianidesJ. Georghiou & Others v.Republic
(1988)Fortheforegoing, thisrecoursefails.Itisherebydismissed. Lettherebenoorderastocosts. Recoursedismissed. Noorderastocosts. 2482