JUDGMENT O.P. Garg, J.
1. A question of far reaching importance is involved in these writ petitions as to whether the employees on the establishment of the High Court of Judicature at Allahabad can be debarred from writing their answers in Hindi in the departmental promotional examinations. It sounds ridiculous that after lapse of half of the century of the commencement of the Constitution of India, the officials of the High Court, which is located in the Hindi speaking belt, are being compelled to writ their answers in departmental examination in English only. For the better appreciation of the controversy in hand, the background in which the present writ petitions have come up before this Court may be narrated. The employees who are recruited to the establishment of this Court are governed by the provisions of Allahabad High Court Officers and Staff (Conditions of Service and Conduct) Rules, 1976 (hereinafter referred to as 'the Rules'). The promotional avenues are available to the Lower Division Assistants (for short 'LDAs') who are initially recruited as Routine Grade Clerks (for short 'RGCs'). There is a promotional post of Bench Secretary Grade II. All those LDAs who have put in ten years continuous service in class III cadre are eligible to appear in the departmental examination. By Office Memorandum dated 24.11.1998, applications were invited from the eligible candidates upto 10.12.1998 and the departmental examination was to take place on 9.1.1999. There was not even a faint suggestion in the Office Memorandum that the candidates who are desirous to take up the proposed examination have to write their answers to the various questions only in English language. The rules are also silent on the point. They were surprised to know by seeing the examination paper to which a note was appended that answers are required to be given in English language only. This compulsion to write in English had irked the various members of the establishment of this Court in general, and the petitioners, in particular. In the present writ petitions, the condition that the answers are to be written in English language only has been challenged as arbitrary, illegal and against the specific provisions of the Constitution and the laws made thereunder. It is prayed that since the petitioners were deprived of their legitimate right to write answers in Hindi in an arbitrary manner, the entire examination, which had taken place on 9.1.1999, be quashed as it stood vitiated. According to the petitioners, examination may be directed to be held again and the respondents be commanded not to compel the petitioners to write answers in English language only. On behalf of the respondents, it has been maintained that in view of the provisions of Article 348 of the Constitution of India, the language of the Court is English and since on the representation of the Employees Association, the committee of two Hon'ble Judges has taken the decision that in view of the duties which are to be performed by the Bench Secretaries, knowledge of English language is necessary and, therefore, the condition that the examinees shall answer the questions in English language only is not arbitrary, illegal or unwarranted.
2. Heard Sri D.S. Misra as well as Sri V.C. Misra, learned counsel for the petitioners in the two writ petitions and Sri Sunil Ambwani appearing on behalf of the High Court and other respondents, as well as learned standing counsel on behalf of the State of U. P.
3. The core question which surfaces in the present two writ petitions for determination and consideration is whether the employees of this Court, who appeared for promotion to the post of Bench Secretary Grade II, could be compelled to answer their questions in English language only or they can elect to write the answers in Hindi as per their choice and convenience. The controversy, therefore, bolls down to this--whether Hindi can be totally excluded in answering the questions in the departmental examination for promotion to the post of Bench Secretary Grade II. This will require scrutiny of the various Constitutional provisions regarding the use of Hindi. Part XVII of the Constitution contains provisions with regard to the official language. In view of Article 343, Hindi in Devnagari script is the official language of the Union of India, but the form of numerals to be used for the official purposes of the Union shall be the international form of Indian numerals. However, use of English was made permissible for a period of 15 years from the commencement of the Constitution for all official purposes of the Union. It was a flexible limit, for, Parliament could extend it.
4. Hindi has not only been given pride of place in our Constitution but is also the State language of Uttar Pradesh as well as some other States in India. There can be no question of any rivalry between Hindi and English. Hindi necessarily occupies the dominant position in such States. In the mid-September this year. Hindi has completed half a century of recognition as the official language of India. The irony is that the year, in fact, means the Golden Jubilee of its failure to become the official language. The failure is much more discernible in the cow-belt where the Hindi is derisively described as lingua franca.
5. The Constitution and the Official Languages Act both give Hindi the status of the official language. However, in reality, this has not come about due to a variety of factors including the absence of political will, the eluding consensus in favour of Hindi and the stubborn unwillingness of the system of governance to abide by the democratic character and the statutes. The elite believe that India can be governed, held together and modernised only through English, a language known to not more than five per cent of the people of India. It has even succeeded in having politics, media and other sectors accept this anomaly without any question. The Governments, both at the Centre and in the States, had, by and large, ignored the issue of language. Not only that, Hindi has hardly become the official language even of the Hindi-speaking States, by the same token the other Indian languages have also not attained the proper and true status of official languages in their respective States. There would be very few languages in the world to have traversed such a vast range in so short a time. The scintillating vision of a Nirala, the Premchandian grasp of ordinary life, the sophistication of an Agyaeya, the rootedness of a Renu, the classical sweep of Hazari Prasad Dwivedi, the moral fibre of Jainendra Kumar, the horrific agonies of a Muktiboth, the passion and sensuousness of a Shamsher, the relentless questioning of the power discourse by a Raghuvir Sahay, the epical geography of the fictions of a Krishna Sobti, the anger of a Shrikant Verma, the quiet ironies of a Vinod Kumar Shukla, etc. are but a few examples of the very wide human, moral and intellectual range covered by Hindi during this period.
6. It would be apposite to mention the following words of Pt. Jawahar Lal Nehru about the magnificence of Sanskrit language, published in an article captioned as The Question of Language" published in National Herald dated 13.2.1949 :
"Though I am not a scholar in any language, I have loved the beauty of a language, the music of its phrases, and the magic and power that lie in words......
If I was asked what is the greatest treasure that India possesses, and what is her finest heritage, I would answer unhesitatingly that it is the Sanskrit language and literature. This is a Magnificent inheritance and so long as this endures and influences the life of our people, so long will the basic genius of India continue. Apart from its being a treasure of the past....... it is a living tradition."
The above observations would apply with equal force to Hindi which has been termed as beauteous daughter of Sanskrit. In the decision of the Apex Court dated 4.10.1994 in Civil Writ Petition No. 1184 of 1989, U. P. Hindi Sahitya Sammelan and others v. Ministry of Human Resources Development and another, the Court was faced with a question whether Sanskrit is required to be included in the syllabus of the Central Board of Secondary Education as an elective subject so far as teaching in Secondary Schools is concerned. The Apex Court observed that the learning of Sanskrit was must to decipher the Indian philosophy, on which our culture and heritage was based. The Court concluded the matter, by saying that in view of importance of Sanskrit for nurturing our cultural heritage, because of which even official educational policy has highlighted the need of study of Sanskrit, making of Sanskrit alone as an elective subject, while not conceding this status to Arabic and/or Persian, would not, in any way, militate against the basic tenet of secularism. A direction was issued to include Sanskrit as an elective subject in the syllabus under consideration.
7. The protagonists of the divine Sanskrit and its legitimate heir Hindi declare that "Hindi is the language in which their prophets, bards and writers have unravelled the mysteries of the earth and heaven and taught them to scorn the fleeting objections of the senses and grow into that spiritual oneness which is the Divine Life. For them, Hindi is the language in which Meera Bai sang her ecstatic songs. Tulsi and Surdas invoked their blessed Masters and Jai Shankar Prasad wove his immortal fantasies."
8. The human geography is changing radically. The hope for Hindi lies in its continuing to manage, in spite of the odds, to handle with maturity and patience the dynamics of change and continuity in its remaining the voice of plurality, of openness, of innovation, of racial memory ; in its being rooted and yet resilient ; in its persistent resistance to parochialism of any kind and in its acquiring greater confidence in speaking not only for the Hindi belt but for the whole nation.
9. As regards the official language of the States. Article 345 authorises the Legislature of a State to make a law adopting any one or more of the languages in sue in the State, or Hind, as the official language of the State. The official language of Uttar Pradesh Government is Hindi written in Devnagari script. An enactment to this effect was passed in 1951 and is entitled 'The U. P. Official Language Act, 1951'. But even prior to that, in 1947, the State Government had declared Hindi as the official language of Uttar Pradesh.
10. The Constitution contains a special directive entitling a person to submit a representation for the redress of his grievance to any officer or authority of the Central Government or a State Government in any of the languages used in the Union or in the State, as the case may be (see Article 350).
11. The Constitution also provides for the setting up of a "Language Commission" at the expiration of five years from the commencement of the Constitution and thereafter another Commission at the expiration of ten years from such commencement, to report on the progressive use of Hindi for the official purposes of the Union and other connected matters (See Article 344). These commissions had been set up at the due time and in pursuance of their recommendations, which were accepted for the most part, considerable progress has been made in the use of Hindi for the official purposes of the Union. Separate provisions have been made in Article 348 prescribing the language of the Supreme Court and High Courts, which shall be considered presently. A reference may also usefully be made to the law applicable in Uttar Pradesh regarding Hindi and the connected executive instructions to augment the cause of Hindi. After the attainment of independence, the State Government in October. 1947, declared Hindi as the State language of this Pradesh. From time to time, administrative orders were issued for the progressive use of Hindi in the official work of the State. The main object of these orders was that the changeover from English to Hindi should be gradual so that the transaction of business may not be impeded.
12. After the Constitution of India came into force, the Uttar Pradesh Language (Bills and Acts) Act, 1950, was passed by the State Legislature, whereby all the Bills introduced into, or Acts passed by, the State Legislature, were to be in Hindi written in Devnagari script.
13. Thereafter, pursuant to Article 345 of the Constitution, the Uttar Pradesh Official Language Act, 1951, was also passed by the State Legislature, whereby Hindi was adopted as the language to be used for all or any of the official purposes of the State. Under Section 2 of it, a notification was issued on October 30, 1952, whereby all the Bills introduced into, or Acts passed by, the State Legislature, were to be in Hindi written in Devnagari script.
14. Thereafter, pursuant to Article 345 of the Constitution, the Uttar Pradesh Official Language Act. 1951, was also passed by the State Legislature, whereby Hindi was adopted as the language to be used for all or any of the official purposes of the State. Under Section 2 of it, a notification was issued on October 30, 1952, whereby November 1, 1952, was appointed as the date with effect from which Hindi in Devnagari script was to be the language in respect of:
Later, the State Government decided for complete switchover from English to Hindi in all official work of the State. For this purpose Section 2 of the U.P. Official Language Act, 1951, was amended by the U.P. Official Language (Supplementary Provisions) Act, 1968. Further, under the said section, a notification was issued whereby the Government appointed January 26, 1968, as the date with effect from which Hindi in Devnagari script was to be used in respect of all the official purposes of the Stale, not covered by the earlier notification of October 30, 1952. Under the amended Section the Government has also permitted the use of the international form of India 'numerals' in respect of all the official purposes of the State.
15. Not only the use of Hindi was made essential in all the official purposes of the State, but executive instructions were also issued on 22.4.1972 that violation of the orders for the compulsory use of Hindi for all official work would be treated as an act of indiscipline. Again, on 19.3.1973, heads of Departments and heads of Offices were instructed to ensure that the orders for the use of Hindi were being strictly complied with and that there was no relaxation of any kind on this score. In December, 1972, instructions were issued that all official telegrams should be sent in Hindi, where such facility exists, in April, 1973, it was reiterated that Hindi should always be used in correspondence with the Government of India. In technical and legal matters also, letters are to be sent in Hindi and, wherever, it is considered necessary an English translation should be enclosed with it. But in every case the original letter should be in Hindi.
16. Under Section 3 of the Central Official Language (Amendment) Act, 1967, which amended the Central Official Language Act, 1963, it has been provided that where Hindi is used for the purpose of communication between one State which has adopted Hindi as its official language, and another State which has not adopted Hindi as its official language, such communication in Hindi shall be accompanied by a translation of the same in the English language. The State Government has issued instructions that letters which arc to be sent to such non-Hindi adopting States with which an agreement to correspond in Hindi has not been made under the proviso to Article 346 of the Constitution, should be in Hindi, but an English translation should also be invariably enclosed. Under the above proviso the State Government has made agreements to correspond in Hindi with several State Governments and Union territories. It will thus be seen that the State Government has made compulsory the use of Hindi for alt the official work of the State.
17. There is a separate provision under Article 348 of the Constitution prescribing for the language of the Courts. In view of the provisions of Article 348(1)(a), Hindi cannot be used in any High Court until a law on the subject is enacted by the Parliament. For the interim period, therefore, the language of the High Court continues to be English for most part, but certain executive decisions have been taken for the use of Hindi in the High Court also in certain matters. In the year 1961. the State Government directed that in a criminal case before the High Court, the Advocate could, at his option, address argument in Hindi. This provision was repeated for civil cases in 1966. Thereafter, towards further progress in the use of Hindi in High Court, the State Government in the Language Department issued a notification in September. 1969 (No. 1608/XXI-11/59-67 dated 5.9.1969) providing for the under noted documents being cast in Hindi at the option of the party concerned subject to certain conditions ;
(a) affidavits submitted to the Court :
(b) statements and documents included in paper books of cases before the Court.
Then a further important step was taken on 24.1.1972 by which a Judge of the High Court could use Hindi in the judgment or decree subject to certain conditions. A Hindi version of the Supreme Court Reports, known as Supreme Court Journal as well as reports of each High Court are also being published in Hindi under the authority of Union Ministry of Law. A Lexicon of Hindi legal terms has been issued under the authority of the same Ministry, As regards subordinate courts in U. P., Hindi was declared as official language of U. P. in October, 1947. Provision was made for the use of Hindi in subordinate Civil, Criminal and Revenue Courts. In respect of civil courts, a notification was issued under Section 137 of the Code of Civil Procedure and for criminal courts, another notification was issued under Section 558 of the Code of Criminal Procedure, as it then stood. In pursuance thereof, work in these Courts was conducted in Hindi generally, though, for some time judgments continued to be written in English. As for revenue courts, the relevant rules were amended so as to provide for the use of Hindi in the Court of Board of Revenue and the Courts subordinate to the Board. Subsequently in 1970, the U. P. Official Language (Subordinate Courts) Act, 1970, was passed with a view to providing greater use of Hindi in subordinate courts of the State. Notifications issued under it provide for judgments and orders being written exclusively in Hindi in the following classes of cases:
(a) cases in which a Magistrate could award a sentence of imprisonment up to one year ;
(b) original cases for the recovery of amount up to Rs. 2,000.
In addition, orders have also been issued that all other authorities dealing with judicial or quasi-judicial matters, such as officers of the departments of Revenue, Consolidation of Holdings, Sales-tax should write all their adjudication's in Hindi. In 1960, the State Government suggested by writing a letter No. 1217/XXI-98-1960m dated 3.6.1960 to the High Court that if there was no objection, instructions be issued to all the civil courts, subordinate to the High Court that those Courts should, as far as possible, write their judgments in Hindi in non-complicated cases not likely to go before the High Court. This suggestion was accepted by the High Court which issued the necessary instructions on the suggested lines. Matching instructions were also issued to the Board of Revenue for similar action in respect of revenue cases and to District Magistrates in respect of magisterial and Panchayat Courts. In regard to Panchayat cases the suggestion was that all judgments be written in Hindi. By and large, the entire judicial work in the subordinate, civil, criminal and revenue courts is being transacted in Hindi.
18. Sri D.S. Misra. Advocate, a strong protagonist of Hindi, entered a vigorous defence in favour of Hindi for being used in this Court at least, to begin with, on the administrative side. He referred to the provisions of Article 350A of the Constitution which contained a special directive that it shall be the endeavour of every State and of every local authority within the State to provide adequate facilities for instruction in the mother-tongue at the primary stage of education to children belonging to linguistic minority groups : and the President may issue such directions to any State as he considers necessary or proper for securing the provision of such facilities. Emphatic reliance was also placed in directive contained in Article 351 of the Constitution, which casts a duty on the Union :
"to promote the spread of Hindi language to develop it so that it may serve as a medium of expression for all the elements of the composite culture of India and to secure its enrichment by assimilating without interfering with its genus, the forms, style and expression, used in Hindustani and in the other languages of India specified in the Eighth Schedule, and by drawing, wherever necessary or desirable, for its vocabulary, primarily on Sanskrit and secondarily on other languages."
This directive has, for one reason or the other, remained an empty formality. If the salutary directive which finds a prominent place in Chapter XVII of the Constitution of India had received due consideration and weightage, the questions which, more often than not, crop up for decision by the Courts with a view to emancipate and to put the mother tongue on a higher pedestal in the heart land of Hindi would not have arisen.
19. Sri Sunil Ambwani, learned counsel for the respondents repelled the submission made by Sri D.S. Misra and urged that the direction to write answers in English only does not run counter to the provisions of Article 351. He referred to unreported Division Bench decision of this Court in Ajai Kumar v. Union of India and others, 1990 Lab IC (NOC) 84 (All). There was an option given to use Hindi as medium to answer General English paper in the departmental examination. Subsequently, the option was withdrawn as it did not yield satisfactory results. It was held that the policy decision taken by the Government did not contravene Articles 351, 14 or 16 of the Constitution of India. It was observed that proficiency in language other than Hindi, if needed for efficiency and discharge for official business, would not offend against directive principles contained in Article 351 or the same could not be questioned as infringing any right vested on any citizen. Further in the absence of any distinction being made between one candidate and another appearing for the General English paper there could be no discrimination.
20. In Sunil Kr. Sahastra Budhey v. Director IIT, Kanpur. AIR 1982 All 398, an ordinance framed under Section 38(c) of the institutes of Technology Act (Act No. 59 of 1961) laid down English as medium of instructions in the IIT. The petitioner insisted to submit his thesis for Ph. D in Hindi. The claim of the petitioner was tested with reference to provisions of Article 351. It was held that such a claim is not borne out from the provisions of the Constitution. Whether or not the petitioner ought to have been permitted to submit a thesis in Hindi when the same had been accepted as national language was a political question. It was further held that the right of expression conferred under Article 19(1)(a) of the Constitution cannot be extended to the conferment of right on a citizen to read and study in a particular language that he wants. The right of expression has a different meaning and is not open for being adopted in the language other than that which is medium of instructions in the institution where admission is sought. To the same effect is the decision of Rajasthan High Court in the case of Umid Singh and others v. Jodhpur University, AIR 198} (NOC) 204. An amendment in the Ordinance No. 35 framed under Section 34 (1) of Jodhpur University Act (Act No. 17 of 1962) was made. making English language compulsory for Intermediate Examination Certificate in order to obtain admission in IInd year T.D.C. of Jodhpur University. It was held that such an amendment is not violative of Article 351 as there was no Constitutional requirement for having education in Hindi and Hindi only and the University should stop studies in other languages.
21. Certain anti-Hindi activities were held to be violative of Article 351. In R.R. Dalavai v. State of Tamil Nadu, AIR 1976 SC 1559, a pension scheme was devised by Tamil Nadu Government granting pension to anti-Hindi agitators. This scheme was challenged and ultimately the Apex Court held that the scheme contained vice of disintegration and fomenting fissiparous tendencies and also was without legislative sanction and violative of Article 351. In the case of Union of India v. Murasoli Maran, AIR 1977 SC 225, a Presidential order had been issued for the purpose of promoting spread of Hindi language and to provide Central Government employees the facility to take training in Hindi language when they are in service. The petitioner in that case challenged the validity of the Presidential order which challenge was upheld by the High Court. But on appeal preferred against the said decision, the judgment of the High Court was reversed and it was said that the Presidential order did not take away anything from the Government employees. The prizes offered were merely incentives. Those incentives were in consonance with Article 344. Again in the V. R. V. Sree Rama Rao v. Telgu Desam, a political party and others, the provisions of Article 351 came to be interpreted. It appears that an objection was taken for the registration of a political organization in the name of Telgu Desam. Telgu is one of the 15 official languages recognised under Articles 344(1) and 351, read with Eighth Schedule to the Constitution. Any appeal for all round development of Telgu language, it was observed, could not be deemed to be anti-national or an endeavour calculated to disrupt the integrity and sovereignty of India, as envisaged under Article 19(2) of the Constitution. On the other hand, all round development of official language and the culture in the time spirit may, in fact, go a long way to integrate these various culture, which may be projected as Indian culture. The argument that the activity of promotion of a particular language as intended was calculated to promote fissiparous tendencies or resulting in disruption of the sovereignty and integrity of India is the product of frustrated mind.
22. Sri Sunil Ambwani made a pointed reference to the celebrated and illuminating Division Bench decision of this Court in the case of Prabandhak Samiti and another v. Zila Vidhyalaya Nirikshak and others, AIR 1977 All 164, as well as to the decision of Rajasthan High Court in the case of Narendra Kumar v. Rajasthan High Court and Others, AIR 1991 Raj 33. I have thoroughly studied both these cases and find that they do not run counter to the point which Sri D.S. Misra for the petitioners in attempting to make out. In Narendra Kumar's case (supra), the question was whether Section 47 of the Rajasthan High Court Ordinance 1949 will continue to apply after coming into force of Part XVII of the Constitution of India. It was observed that so far as Part XVII of the Constitution of India is concerned, it is relevant part, insofar as official language of the Union, including language to be used in the Supreme Court and the High Courts is concerned. After coming into force of the Constitution of India, the provisions of the Constitution of India shall prevail and all provisions of any existing law, insofar as they are inconsistent with the provisions of the Constitution of India, will have no application. Use of Hindi as optional language is not unconstitutional. It is in accordance with Section 7 of the Official Language Act, which is not inconsistent with the Presidential Order under Article 344B. The Presidential order and the Official Language Act cover different fields. Clause 12 of the Presidential Order with regard to the language of the Supreme Court and the High Courts made certain provisions. In respect of the language of the High Courts, the Presidential order provided that the Ministry of Law may in due course undertake necessary legislation to provide for the use optionally of Hindi and other official languages of States for purpose of judgments, decrees and orders with the previous consent of the President, as suggested by the committee in modification of the recommendation of the Commission. It appears that in order to give effect to the aforesaid Presidential order the Official Language Act was made by the Parliament in the year 1963 and Section 7 which was enacted, reads as under :
"As from the appointed day or any day thereafter the Governor of a State may with the previous consent of the President authorise the use of Hindi or the Official language of the State in addition to the English language, for the purposes of any judgment, decree or order passed or made by the High Court for that State and where any judgment decree or order is passed or made in any such language (other than the English language) it shall be accompanied by a translation to the same in the English language issued under the authority of the High Court"
23. In the case of Prabandhak Samiti (supra), a petition had been drafted in Hindi in Devnagari script and presented before this Court under Article 226 of the Constitution of India. A question arose whether such a petition could be entertained and adjudicated upon by the High Court. In that case, the question was not in respect of passing of judgment or decree or order in accordance with the Government Order made under clause (2) of Article 348 of the Constitution but the question was only in respect of adjudication of the petition presented and written in Hindi. The Court posed a question as to whether language can be employed for the use of the Courts and that the matter cannot rest on Articles 343 and 345 of the Constitution and must ultimately be decided on the basis of provisions of Article 348. The Court examined the scope of clause (2) of Article 348 of the Constitution of India and said that it is clear from its terms and until the Parliament enacts a contrary law, the proceedings in the Supreme Court and High Court are enjoined to be in English language. The Court said that as regards the High Court, clause (2) empowers the Governor to permit use of Hindi in pleadings and arguments and the documents filed and once a Governor issues such notification, an individual can file such petition written in Hindi under Article 226 of the Constitution of India. Under clause (2) of Article 348 of the Constitution of India, therefore. Governor of a State with the previous consent of the President could authorize the use of Hindi language in the proceedings in High Court but this power of Governor was not extended to any judgment and decree passed or made by the High Court, and, therefore, it is only in accordance with the provisions of Official Language Act and more so, its Sections 6 and 7 for the optional use of Hindi written in Devnagari script has been permitted.
24. The field which Hindi occupies in its historical retrospect came to be surveyed in the decision of Prabandhak Samiti (supra) in which it was said that the transition from one official Court language to another whether it be under the impact of political freedom or the efflorescence of nationalist sentiment or both, is often preceded by grave misgivings, apprehensions, and even open or veiled hostility. The traditionalists feel aggrieved by what they regard as an invasion into entrenched territory. The reformers, on the other hand, are intolerant of what they are prone to regard as the tyranny of a foreign language. They are only too eager to hail the dawn of a new linguistic era. The history of the world bears witness to this precarious phenomenon of one Court language being replaced by another. The other observations are highly revealing and valuable and clinch the issue. I cannot but do better to reproduce paragraphs 12 and 16 of the decision which are likely to reverberate and guide the destiny of Hindi as a Court language :
"12. The progress of Hindi in its march towards the goal of becoming the language of the Courts in the State of Uttar Pradesh synchronizes with the various steps taken in pursuance of Art. 348(2). It may be noticed that whereas clause (1) of Article 348 contemplates some law to be enacted by the Parliament, clause (2) of the same Article achieves its object through the instrumentality of orders issued by the Governor of the State. The proviso to that clause is to the effect, that nothing in this clause shall apply to any judgment, decree or order passed or made by such High Court. In other words, barring the items mentioned in the proviso, the use of Hindi language in proceedings in the High Court can be authorised by means of an order passed by the Government of the State concerned under Article 348(2). This provision vividly reflects the foresight and policy of the framers of the Constitution which was not to let the use of Hindi in the law courts in the States be delayed or deferred until Parliament by law provided that all proceedings in the High Courts should be in Hindi or any other official language of the State. Thus, the intention of an expeditious substitution of Hindi for the English language for use in all proceedings in the High Court fn the State of Uttar Pradesh can be clearly culled from the provisions of Article 348(2).
13.....
14.....
15.....
16. Thus, on a proper interpretation of the notification dated 5th September. 1969, made under Article 348(2), there can be no manner of doubt as to the legality of a writ petition being drafted in Hindi in Devnagri script and filed for adjudication in the High Court in the State of Uttar Pradesh. In fact, the language of the notification is wide enough to cover all pleadings, including plaints, written statements, writ petitions, and also other documents which are required to be filed in such proceedings. It is also clear from the various measures already taken to which we have referred in our judgment that the law as it now stands does not empower a Judge of our High Court while hearing a case to stop a litigant or his Advocate from making the arguments in Hindi, if he so desires. It is also equally clear that it is open to a Judge of the High Court hearing a case to pass his judgment or decree or order in Hindi, if he so chooses, but he cannot be compelled to do so. In case, however, he passes an order or decree, etc., in Hindi, the only limitation stilt imposed upon him is that it must be accompanied by a translation of the same in the English language issued by the authority of the High Court. This sums up the present legal position with regard to the use of Hindi in proceedings in the High Court."
24. The misfortune of Hindi is that on the one hand, it has been by-
passed by the State, on the other. It has been betrayed by its own evergrowing champions. In spite of the decision in the case of Prabandhak Samiti (supra), by which it has been firmly laid down that in view of the notification issued by the Governor of Uttar Pradesh under Article 348(2) of the Constitution, use of Hindi with certain limitation is permissible, Sri Sunil Ambwani urged that Section 7 of the Official Language Act abrogates the provision of Article 348(1) as regards the judgment and decrees and substitute in its place a requirement that the judgement and decrees should be accompanied by English translation authenticated by High Court. Placing reliance on paragraph 23. 10 of HM Seervai's Constitutional Law of India, 1996 Ed, Vol. III, page 2585, which runs as follows ;
"23.10. If the unity of the judicial administration, and of the Bench and the Bar is to be preserved. It is to be hoped that such permission will not be given. Entry 78, List I expressly confers on Parliament the power to legislate In respect of persons entitled to practise before the High Courts. The Advocates Act, 1961 has created a unified autonomous Bar of India. Today the legal profession is one united profession entitled to practise throughout India. If the language of different High Courts is to be different, the right to practise throughout India becomes illusory in practise and each High Court will be isolated by the barrier of its own language. It will also be deprived of the assistance to be derived from judgments of other Courts, and the uniform interpretation of Central laws, so desirable in judicial administration, would be unattainable. The work of the Supreme Court and the recruitment of Judges to the Supreme Court must greatly suffer, for Judges of the Supreme Court could not be recruited from High Courts where the language was different from that spoken in the Supreme Court. The unifying influence of a Supreme Court on judicial administration would be seriously impaired, if not destroyed, and the quality of its Judges and of its judgments must necessarily suffer."
It was maintained that it would not be proper and expedient if the LDAs of this Court appearing in the promotional examination of Bench Secretary Grade II are permitted to elect Hindi in writing their answers. A reference was made to paragraphs 4 and 5 of the counter-affidavit, which has been sworn by Sri T. M. Khan, Officer on Special Duty in the Registry of this Court. In paragraph 5 of the counter-affidavit, it has been averred that for holding competitive examination for Bench Secretary II, vide advertisement dated 24.11.1998 held on 9.1.1999, Hon'ble the Chief Justice constituted committee consisting of Hon'ble A.K. Banerji and Hon'ble J.C. Misra. JJ. The committee was of the view that knowledge of English language and speaking efficiency should be upto the mark, therefore, the committee prescribed that the answers of the said examination should be given in English language. The committee further prescribed a translation passage from Hindi to English for 50 marks to Judge the suitability of English language of the candidates. Prior to it, according to the averments made in paragraph 4 of the counter-affidavit, in the Bench Secretaries Examinations of 1989, the examinees were asked that all questions should be answered in English language. In the next examination in 1992, a representation dated 18.6.1992 was given by the Employees' Association of this Court to the Hon'ble the Chief Justice requesting that the question papers for written examination be set both in English and Hindi languages and the candidates appearing in the said examination should be permitted to write their answers either in English or in Hindi. The aforesaid representation was forwarded to a committee constituted by Hon'ble the Chief Justice. The committee of Hon'ble S.P. Srivastava, J. and Hon'ble B.P. Singh. J. (as their Lordships then were) considered all the aspects and turned down the request by detailed orders dated 13.7.1992 and 14.7.1992. A copy of the report of the aforesaid Committee, on the representation of the Employees' Association of this Court has also been brought on record as Annexure-C.A. 1 to the counter-affidavit. For ready reference, the relevant portion of the report is reproduced :
The duties attached to the post of Bench Secretaries require an adequate knowledge of the Rules of the Court which are in English language. Further for the discharge of the duties attached to the said office in an efficient manner it appears necessary to have a fair knowledge of the English language.
In the circumstances, therefore, the purpose of the competitive examination in question cannot be effectively served in case the option sought for in the representation is permitted."
26. As said above, the examination for promotion to the post of Bench Secretary Grade II is conducted under the provisions of the Rules. The Rules are silent on the point of use of language. Sri Sunil Ambwani, however, pointed out that under Rule 41 of the Rules, residuary powers vest in the Chief Justice to make such orders, from time to time, as he may deem fit in regard to all matters incidental or ancillary to the Rules not specifically provided for in the Rules or in regard to matters as have not been sufficiently provided for. No specific order of Hon'ble the Chief Justice has been placed before this Court to indicate that in exercise of power conferred under Rule 41, Hon'ble the Chief Justice has directed that the answers to the questions shall be written in English language only by the candidates appearing for promotional examination for the post of Bench Secretary. Grade II. Rejection of the representation of the Employees' Association by the committee of two Hon'ble Judges of this Court cannot be treated to be an order of Hon'ble the Chief Justice within the parameters prescribed in Rule 41 of the Rules. Even if for the sake of argument, the aforesaid order passed by the Committee rejecting the representation of the Employees' Association is treated to be an order passed for and on behalf of Hon'ble the Chief Justice, falling within the ambit of provisions of Rule 41 of the Rules, it would, in the background of the legal position, stated, above and hereinafter, not withstand the test of scrutiny. It would be too genteel for this Court to make a discourse upon the vast and all pervading powers of Hon'ble the Chief Justice under Rule 41 of the Rules for effectively propelling the mechanism of the Service Rules, governing the establishment of this Court, nevertheless, one can expect that any order passed by His Lordship Hon'ble the Chief Justice has to accord the parameters of the constitutional provisions and the law, as interpreted in various decisions, including the present one.
27. It is true that a Bench Secretary should have the knowledge of English language as mostly the work of the Court is transacted in English language ; the cause list is printed in English ; pleadings and documents are, by and large, in English : decisions cited on behalf of the parties are also in English ; learned counsel for the parties also address the Court and make their submissions and arguments, more often than not, in English and the majority of decisions of the Court are also delivered in English. In these circumstances, the necessity of proficiency in English on the part of a Bench Secretary cannot but be overemphasized. The knowledge of proficiency in English of a candidate, aspiring for promotion to the post of Bench Secretary Grade II is tested by invariably giving a passage for translation from Hindi to English. Half of the total marks of the paper are assigned to the translation part of the question. Not only this, it would be highly unrealistic if the candidates recruited to the feeder source (RGCs) by using Hindi in writing their answers are required to write their answers in the departmental promotional examinations in English only. In the expanding horizon of Hindi as Court language, it would not be proper to compel the examinees to write the answers of other questions in English language only. As said above, presentation of the petitions drafted in Hindi is permissible ; certain documents in Hindi may also be filed and there is no bar if arguments are made by the counsel in Hindi. It is also permissible to write judgments in Hindi. The use of Hindi as optional language in judgments, decrees and orders of this Court in addition to English cannot be said to be in contravention of any provision of the Constitution of India, rather it is in accordance with the provisions of Official Language Act, which has been made by the Parliament having the authority to do so. Accordingly, by notification No. 35/X-e-5 dated 24.1.1972 published in U. P. Gazette dated 10.11.1973, the following proviso has been inserted to Rule 8 of Chapter VII of the Allahabad High Court Rules. 1952 :
'Provided that Hindi may be used in place of English, on optional basis, in any judgment, decree or order to be passed by the Court. Such judgment, decree or order shall be accompanied by an authorised English translation thereof."
Insertion of the aforesaid proviso is intended to give impetus for using Hindi language in the official work of this Court. It is clearly in keeping with the provision of Article 351 of the Constitution of India which, as said above, cast a duty to promote the spread of Hindi language to develop it so that it may serve as a medium of expression for all the elements of composite culture of India. Sri D.S. Misra, learned counsel for the petitioners rightly pointed out that in the examinations for recruitment of the Judicial officers to the cadre of Provincial Civil Service (Judicial) and Higher Judicial Service, use of Hindi in writing answers is permissible. Some of the Judicial Officers, in due course of time, by virtue of their seniority and performance, are elevated as High Court Judges. According to Sri Misra, the post of Bench Secretary, or for that matter, any other post in the Registry of this Court, is much lower in ladder, on the top of which is a High Court Judge, and, therefore, it would be highly imprudent not to permit the class III employees of this Court to write their answers in Hindi language on optional basis. The submission is that in the conspectus of the vast developing changes and yearning and eagerness to promote Hindi language, this Court on its administrative side, would do well to lift ban on writing the answers in Hindi language. Hindi should be made as the elective language to write the answers. The examinees should be left free to select. Hindi or English in writing answers. As a matter of fact, such a practice was prevalent in this Court prior to the examinations of 1989. It was only in the examination which was held in 1989 that the candidates were compelled to write their answers in English language only. It is not understandable as to under what circumstance, this compulsion came to be engrafted for the first time in the examinations of 1989 and onwards, particularly when in all the earlier examinations, the examinees had the option to write their answers either in English or in Hindi. The stream of our culture would get dried if we were to discourage use of Hindi and that too on the most untenable grounds, stated above.
28. A summation of the above discussion leads to the following irresistible conclusions :
(i) Under the provisions of Article 351 of the Constitution, all out attempts have to be made for promotion. spread, development and growth of Hindi language as a medium of expression for all the elements of composite culture of India ;
(ii) In spite of the fact official language of the Court, as contemplated under Article 348(1) of the Constitution is English. Article 348(2) enables the Governor, with the previous consent of the President, to authorise use of Hindi or of the official language to be used in the High Court of the State ;
(iii) Section 7 of the Official Language Act, 1963, abrogates the provision of Article 348 (1) as regards judgment, decrees, and orders and substitutes in its place the requirement that the judgment, decree and orders should be accompanied by an English translation authenticated by High Court :
(iv) The State Government has by issuing a proper notification dated 5.9.1969 under Article 348(2) of the Constitution, authorised the use of Hindi in this Court and in view of law, as interpreted in Prabandhak Samiti's case (supra), the pleadings, including plaints, written statements, writ petitions and other documents may be prepared and filed in Hindi, and, the law now, as it stands does not empower a Judge of this Court while hearing a case to prohibit the litigant or his Advocate from making arguments in Hindi, if he/she so desires ;
(v) It is also clear that it is open to a Judge of this Court, hearing a case, to pass judgment, decree or order in Hindi, if he/she so chooses, though he/she cannot be compelled to do so ;
(VI) The Allahabad High Court Rules. 1952 have been suitably amended with a view to promote the use of Hindi in this Court ;
(vii) Rules (Allahabad High Court Officers and Staff (Condition of Service and Conduct) Rules, 1976) are silent on the point as also there is no specific order of Hon'ble the Chief Justice prohibiting use of Hindi in writing the answers, which he could do by invoking the provisions of Rule 41 of the Rules (subject to the condition that the same is otherwise not unconstitutional or against any other law) ;
(viii) In the examinations held prior to 1989. use of Hindi language to write the answers was not prohibited and there does not appear to be any sound basis for putting an embargo on the use of Hindi language for the first time in the examinations of 1989 onwards and, lastly.
(ix) Knowledge and proficiency in English of the eligible candidates is sufficiently tested by prescribing a compulsory question of translation from Hindi to English.
29. In view of the above conclusions, the writ petitions have to succeed. The use of Hindi language in writing the answers in the Departmental Examination to the promotional post of Bench Secretary Grade II has been illegally prohibited. Now the question is whether the petitioners, in the circumstances of the case, can be granted any relief. The Examination of 1999 is already over, the results have been declared and the successful departmental candidates are fully saddled on the promotional posts. It is not necessary to put the on going cart in the reverse gear, particularly in view of the fact that successful candidates who have been promoted and are bound to be affected by any direction if made operative from retrospective effect, have not been arrayed as party to this writ petition. The petitioners have to rest contented with the feeling and realisation that they have been successful in championing the cause of Hindi. It should be their endearing solace.
30. In the result, both the writ petitions are allowed only to the extent that in future eligible candidates appearing in the examination for the promotional post of Bench Secretary Grade II shall not be compelled to write their answers in English language only. They shall have the option either to write their answers in English or in Hindi language and to give effect to this direction the question papers shall be bilingual.