P. SINGH v. BIHAR

## _.l_ 787 RAMESH PRASAD SlNGH l'. STATE OF BIHAR & ORS. _November_ 4, 1977 [S. MuRTAZA FAZAL ALI AND JASWANT SINGH, JJ,J: _Constitution_ _of_ _India,_ 1950, _Articles_ 14 _and 16--Appellant appointed_ _as_ _an_ _Executive_ _Engineer ten1porarily_ _by_ _pron1otio11_ _by_ _rirt11e_ _of_ _his specialised quali-_ _fication in_ _rhe_ _absence_ _of_ _any rule n1ade prescribillK qualification .. \·_ _for the post_ _of_ _Execuri1·e En>:ineer-Powers_ _of_ _the_ _a11tliorities_ _in_ _such_ _cases_ _fo,_ _appoint_ person~ _ID_ _vosts-W'hetfler_ _11011-consideration_ _of_ _the cases_ _of_ _responden/s_ 3 _re_ 28 _who were niere graduates_ _in_ _Engineerlnlg riolates_ _Arts._ 14 _and_ 16. The appellant, a B.Sc. Engineering degree-holder in Tcle-Cornmuntcation was appointed as an Assistant Engineer (Tele-Comn1unication) in September 1963 by the Biha·r State Electricity Board and was sent abroad to the headquarters of _Mis._ Brown Boveri and Co. Ltd., Badan, Switzerland for six months' specialised training in pov.'er line carrier, telc-metering and tele-control equipment in the modern power system. On his return the appella_nt 'vas deptlleJ to look after the entire tele-communicatiOn system of the Board. ln June 1968, the Board felt the necessity of maintenance of efficient communication service between the vital centres of generation, utilisation and administration for ensuring reliability and continuity in power supply which would facilita-te quick supervision and checking of the then existing arrangements at the generating stations receiving sub-stations and distributing areas as also the necessity of proper supervision and handling by trained and qualified personnel of a large number of wave-change-over communication equlpntents on 33 KW Transn1ission line which had been installed in the Tele-Communication SubDi\·ision of the Board at Patna and were maintained and a-1.igned with the help of special electronic instruments. The Board, therefore, accorded <;anction to the creation of a ten1porary Tele-Communication Division with headquarters at Pa·!na nnd nlso to the creation of a temporary post of Executive Engineer (Tele-Communication). As per the recommendation of its expert Selection Committee to the effect that the appellant was fit to be promoted to the rank of ihe Executive En~ineer (Tele-Communication) in view of the f<lct that he hnd consistently good record of service, possessed the degree in Tele-Con1mun1cation Engineering, had undergpnc special training in Switzerland in TeleCo1nmunication. had ever since his return from Switzerland been ~a·tisfactor'1ly perfo1 ming the onerous and complex duties assigned to him and had been looking after the entire Tele-Communication svstem of the Board and had 1·hu5 aCquired a valuable practical experience in 'that field \1.'hich \\.'?.<> necessary to man the post of Executive Engineer (Tele-Comn1unication), the anoeiT.·lnt wa;; apnointed ten1porarily on promotion to the post of Executive Engineer (Tele-Communication). Thereupon respondents 3 to 28 who are Assistant Electrical Engineers appointed. a-s such. earlier to the appellant challeftg~d the said appointment in the Patna High Court averring that the promofiori of the arpellant was _n1ala_ _fide;_ they were seniors to the -appellant and pos<;cssrd the reauisite qualifications; their cases must h<\ove been considered hv the Boar{\; and their superscssion is in violation of guarantee of equality nf ooportunt1v enshrined in Articles 14 and 16 of the Constitution. The High Court quashed the said orders and held that the case of respondents 3 to 28 who \1/ere seniors to :ind had better experience and academic ca·reer than the appellaiit had been unju5tifiably i~nored by the Board violating the orotection of equal opportunity gunianteed under Arts. 14 and 16 of the Constitution. In appeal by certificate. respondents 3 to 28 though served did not choose to aonear. Resoondents 1 and 2 contended : (i) th~t Tele-Communica·tion is a hifJ:hly specialised subject quite distinct from that of _general electricity; (ii) that re5pondeftts 5 to 28 who \Vere merely 'graduates of Science in Electrical -Engineering were not quali· fied for the post of Executive Engineer (Tele-Communication'). Respondents A J)l . E. A B c D E G 788 SUPREME COURT REPORTS [1978] 1 S.C.R. 3 and 4 who had only studied tele-communication as one o( the subjects in their final B.Sc. Engineering Examination also were not equally qualified; (iii) that they had no right to n1aintairi the writ petition; and (iv) that there wa5 no question of any breach or violation of the guarantee of equality of opportunity contained in Articles 14 a·nd 16 of the Constitution. Allo;.ving the appeal, the Court, HELi) : ( 1) The process of rule making is a protracted rind complicatecl one involving consultation with various authorities and compliance wilh n1aru .• fold formalities. Exigencies of administration at ti1nes require in1n1ediate cre<l'lion of service or posts and any procrastination in that behalf cannot hut prove dctrin1ental to the proper and efficient functioning of public departments. In such like situations, the authorities concerned would have the p0¥.'er to appoint or terminate adn1inistrntive personnel under the general power of adn1in1stration vested in them. Jn the absence of rules, qualifications for a post can validly be hi-id down in the self san1c executive order creating the service or po~t and filling it up according to those qualifications. [792 A-D] _IJ._ 1V. _1\lagaraja11_ & _Ors._ v. _State_ _of_ _Mysort·_ & _Ors._ [19661 3 SCR 682 and _T. Cajee_ v. _U._ _Jonnanik_ _Sie111_ & _Anr._ [1961] 1 SCR 750 at 764, followed. (2) The doctrine of equality before law and equal protection of laws «·nd equality of opportunity in the matter of employment and promotion enshrined in Articles 14 and 16 of the Constitution which is intended to advance justice by avoiding discrimination is attracted only when equals are tre<lte9 as iinequ;1ls or v.·hcre unequals are treated as equals. The guarantee of equality does not in1ply that the same rules should be made applicable in spite of differences in their circun1stances and conditions. Although Articles 14 and 16 of the Constitution forbid hostile discrimination, they do not forbid reasonable classification and equality of opportunity ill matters of pron1otion means equality as between n1cmbers of the sa-me class of employees and not equal betv.:een rne1nbers of scpnr:.:i-te independent classes. Though the concept of equal protection ~lnd equnl opportunity undoubtedly permeats the \vholc spectrum of an individual's ernployn1ent from appointment through promotion and te_rmination to the payment of gratuity and pension, it has an inherent limitatiotl ·:'i·ns~ ing from the very nature of constitutional guarantee. Equality i<> for equals, that i-., vvho arc similarlv circumstanced are entitled to an equal trea-tinent but the guarantee enshrined ·in Articles 14 and 16 of the Constitution cannot be carried beyond the point which is well~settled by a catena of decisions of tbio; Court. 1792 H. 793 A-J)] _ll1d._ _U.una11_ _&_ _Ors._ v. _State_ _of_ _Andhra_ _Pradt-sh_ [19711 2 SCC 188; AIR 1971 SC 1801; _Cldranjit_ _Lal_ _Chowdliuri_ v. _The_ _U11io11_ _of_ _India_ & _Ors._ [19501 SCR 869 at 911 and _All_ _India Station Masters'_ & _Assis/ant_ _Station_ _Masters'_ _A.uociatfon_ & _Ors._ v. _General Manager, Central_ _Railwa)'_ & _Ors._ [1960] 2 SCR 311. 316- -A JR I 960 SC 384, 386, referred to. (3) ln the instant case : (a) T-he High Cou11 was in error in thinking th&t respondents 3 to 28 possessed qualifications equal to the appellant or that they \Vere eligible for the 1ob. [792 GJ (b) It is evident from the perusal of the proposal for creation of a TeleCornmunication Division at Patna and the aforesaid reco1nmenda·tion made _'by_ the Selection Committee in favour of the appellant that for ensuring reliability and continuity in power supply it 'Nas absolutely essential that m<lintenance ot the sophistica-ted wave-change-over communication equipments of 33 KW instaJlcd by the Board in the Tele-Communication Sub-Division should be entrusted to specially trained experienced and qualified officer possessiil!! specialised theoretical and praetic<ll knowledge of Tele-Comnu1nication \vhich is a subJe;;t quite distinct from that of general electricity. lt was only the appellant who possessed degree in B.Sc. Engineering in Tele-Communica.tion. was separately recrnitcJ and specially trained in that line in Switzerland ;ind thus acquired specialised kno\vledge therein and acquitted himself creditahly in tbe field for '·· . ' ###### ~- P. SINGH _v._ BIHAR _(Jaswant Singh,_ J.) 789 five years who could be said to possess the rcquisit~ qualification and be con- A sidercd fit and suitable for the job in question and not a•ny one of the respondents 5 to 28 who \Vere mere graduates in electrical engineering or respon{]ents 3 and 4 who had studied tele-communication only as one of the subjects in their final B.Sc. Engineering Examination. [792 A-G] (c) The qualification required for the post of Executive Engineer (TelcCon1nn1nication) as demonstrably reflected in the proposal for creaotion-- of that post and the aforesaid recommendation of the Selection Committee setting out various factOrs which went in favour of the promotion of the appellant appear B 10 be founded on reasonable classification having an intelligible d1tterent1a which dislinguished the appellant from respondents 3 to 28 and the d1ffercnl1a ilad a reasonable relation to the object sought to be achieved. [795 D-E] R.espondents 3 to 28 had no legal right which they could clain1 to h~ve been denied to then1 by an a-uthority which had a legal duty to do something. fhe High Court \Vas not right in issuing the writ of mandamus. [795 E] _Mani_ _Subrat Jain_ & _Or.\·._ v. _Staf.::_ _of_ _llar.vana_ & _Ors._ [1977] 1 SCC 486, C <lpplied. < The criterion employed by the concerned authority in promoting t·he appellant was not arbitrary or capricious but \Vas intended to increase the effic1~ncy in the functioning of the department. It was not based on extraneous or irrelevant considerations or sufiered fron1 any other vice. [?96 Al CIVIL APPELLATE JURISDICTION _:_ Civil Appeal No. 1825 of D 1969. From the Judgment and Decree dated 13-5-1969 of the Patna High Court in Civil Writ Jurisdiction Case No. 460/68. _S._ C. _Aganvala_ and _R._ _K._ _Garg_ for the Appellant. _Sar;ov_ _Prasad_ and _U._ _P._ _Singh_ for Respondent No. 2 For respondents 1 and 3-28 _Ex_ _parte._ The Judgment of the Court was delivered by JAsWANT SINGH, J.-This appeal by certificate granted by the High Court of Judicature at Patna under Article 133 (!)(a) and (b) of the Constitution is directed against the judgment and order dated May 13, 1969 of that Court whereby Civil Writ Petition No. 460 of 1968 fileu by respondents 3 to 28 herein was allowed, Notification No. SS/ A-1-103/68/2676/EB dated June 24, 1968 issued by the Bihar State Electricity Board, respondent No. 2, appointing the appellant as ofliciating temporary Executive Engineer (Tele-Communication), Tele-Communication Division, Patna was quashed and a writ of mandamus commanding respondent No. 2 to fill up the post of thci Executive Engineer (Tele-Communication) after considering the case of respondents 3 to 28 and specially of respcndents 3 and 4 along with the case of the appellant or with the case of any other Assistant Engineer whose case in the opinion of the Board may be lit to be considered in the light of the said judgment was issued. The circumstances giving rise to this appeal lie in a short compass. It appears that the appellant who passed the final examination of Bachelor of Science (Engineering) in Tele-Communication of the Ranchi University held in August, 1962 was appointed by the Bihar E F G H A B c () E F G H 790 SUPREME COURT REPORTS [ 1978] 1 S.C.R. State Elcclricity Board (hereinafter referred to as 'the Board') as Assistant Engineer (Telc-Communication) in September, 1963 on a salary of l<.s. 245/- per month in the pay scale of Rs. 220-25-320EB-25-670-EB-30-750. A few weeks after his recruitment, the appellant was sent by the Board to the headquarters of Messrs Brown - Boveri and Company Limited, Baden, Switzerland for six months' specialized training in power line carrier, telc-mctering and tele-control equipment in the modern power system. On his return from Switzerbnd and resumption by him of his duty as Assistant Engineer (Tele-Communication) the appellant was deputed to look after the entire tele-communication system of the Board. In June, 1968, the Board felt the necessity of maintenance of efficient communication service between the vital centres of generation, utilization and administration for ensuring reliability and continuity in power supply which would facilitate quick supi>rvision and checking of the then existing arrangements at the generating stations, receiving sub-stations and distributing areas as also the necessity of proper supervision and handling by trained and qualified personnel of a large number of wavechange-over communication equipments on 33 KW Transmission line which had been installed in the Tele-Communication Sub-Division of the Board at Patna and were maintained and aligned with the help of special electronic instruments. Accordingly, the Board accorded sanction to the creation of 11 temporary Tele-Communication Division with head-quarters at Patna as also to the creation of a temporary post of Executive Engineer (Tele-Communication) in the replacement scale of pay of Rs. 730-35-870-40-1070-EB-45-1250 for the said Tele-Communication Divisicm with effect from June 22, 1968 to February 28, 1969. Acting on the recommendation of its expert selection committee to the effect that the appellant was fit to be promoted to the rank of the Executive Engineer Tele~Communi­ cation) in view of the fact that he had a consistently good record of service, possessed the degree in Tele-Communication Engineering, had undergone special training in Switzerland in Tele-Communication, had ever since his return from Switzerland been satisfactorily performing the onerous and complex duties assigned to him and had been looking after the entire Tele-Communication system of the Board and had thus acquired a valuable practical experience in that field which was necEssary to man the post of Executive Engineer (Tele-Communication) and that the Assistant Electrical Engineers of 1960 batch were being considered for promotion as Electrical Executive Engineers, the Board issued the aforesaid notification temporarily promoting the appellant to the post of Executive Engineer (Tele-Communication). Thereupon, respondents 3 to 28, who had been appointed as Assistant Electrical Engine~rs in September, 1960 moved the High Court at Patna by means of a writ petition under Article 226 of the Constitution challenging the aforesaid notification averring inter alia that thei promotion of the appellant was mala fide, that thou_gh they were senior to the appellant and possessed the requisite qualification and two of them viz. Harkishore Singh and Dina Nath Singh had studied tele-communication as one of their subjects in the final examination of B.Sc. in Electrical Engineering. they had not even been considered by the Board for appointment to the aforesaid post of Executive Engineer and that they had been superseded ' .. ###### ### ###### ~ **P.** **SINGH** _**v.**_ **BlliAR** _(Jaswant Singh,_ _!.)_ 791 and unreasonably discriminated against in violattion of the guarantee of equality of opportunity enshrined in Articles 14 and 16 of the Constitution. The petition was contested by the appellant as also the State of Bihar and the Board who contended that the appellant was holding an extra-cadre post of Assistant Engineer (Te!ecCom munication) which was created separately from that of the other Assistant Electrical Engineers; that respondents 3 to 28 not being holders <lf degree in Tele-Communication (Engineering) were not qualified for appointment as Executive Engineer (Tele-Communication) and had no right to maintain the petition and that there was no ,question of violation of equality of opportunity guaranteed under Articles 14 and 16 of the Constitution. On a consideration cf the rival contentions of the parties, t.he High Court while granting that the appellant possessed the degree of B.Sc. Engineering in Tele-Communication; that the post of Executive Engineer (Tele-Communication) might be an extr~ cadre post as claimed by the Board and that it was not for the Court but for thei Board to' decide on the basis of the opinion of experts or selection committee as to who was fit and suitable for that post, quashed the aforesaid notification promoting the appel!Jnt mainly on the grounds that neither a separate, cadre of Executive Engineer (Tele-Communuication) had been constituted nor had any special qualification been laid down by the· Board for the post in question and that respondents 3 to 28 who were seniors to and had better experience and academic career than the appellant had been unjustifiably ignored by the Board violating the protection of equal oppcrttmity guaranteed to them under Articles 14 and 16 of the 'Constitution. It is this judgment that is impugned in this appeal. We have heard learned counsel for the appellant and respondents **E** **1** and 2 viz. the State of Bihar and and the Board but have had not the advantage of hearing respondents 3 to 28 or any one on their llehalf, as they have chosen not to appear despite personal ser**vice.** The !earned counsel appearing on behalf of the appe1lant and respondents 1 and 2 have vehemently urged that Tele-Communica- **F** lion is a highly specilizcd subject quite distinct from that of general Electricity: that respondents 3 to 28 who were mere graduates of Science in Electrical Engineering were not qualified for the> post of Executive Engineer (Tele-Communication) and had no right to maintain the writ petition out of which the present appeal has arisen and that in the facts and circumstances of the instant case, there was no question of any breach or violation of the guarantee of equality of **G** opportunity contained in Articles 14 and 16 of th~ Constitution as was contended by them. There is, in cur opinion, considerable force in these submissions. Regarding the observation of the High Court that in the absence of rules laying down qualifications for appointment and promotion to the post of Executive Engineer (Tele-Communication), respondents **H** 3 to 28 could not be excluded from consideration for appointment tc "that post, we would like to say that though it cannot be gainsaid that before initiaticn of the proposal for creation of the post of Executive _/_ **A** **.B** **c** **D** **A** **B** c **D** **E** **F** **G** **H** 792 SUPREME COURT REPORTS (1978] **1** S.C.R. Engineer l Telc-Communic~pon), respondents I and 8 had not framed any rules prescribing qualifications for that post, it cannot be overlooked that it is not obligatory to make rules of recruitment etc. before a service is constituted or a post is created or filled up. As is well known, the process of rulc"making is a protracted and complicated one involving consultation with various authorities and compliance witl1 manifold formalities. It cannot also be disputed that **exigencies of administration at times require in1mediate creation** **of** service or posts and any procrastination in that behalf cannot but prove detrimental to the proper and ellicient functioning of public departments. In such like situations, the authorities concerned would have. **the** **povver** **to** **appoint** **or** **tcrn1inatc** **ad1ninistrativc** **personnel** **under** **th..:** general power of administraticm vested in them as observed by this Court in _B. N. Nagarajan_ & _Ors._ v. _State_ _of_ _Mysore_ & _Ors(')_ and _T._ _Cajee_ v. _U._ _Jorma11ik_ _Siem_ & _Anr.(')_ It follows, therefore, that in the a bsencc of rules, qualifications for a post can validly be laid down in the self same executive order creating the service or post and filling it up according to those qualifications. In the instant case. it is evident from u persual of the proposal for creation of a Tele-Communica**tion** **Division** **at** **Patna.** **and** **the** **arorcsaid, rccon1mendation** **n1adc** **by** **the** Selection Committee in favour of the appellant that for ensuring reliability and coatinuity in power supply it was absolutely essential that maintenance of the sophisticated wave-change-ever communication equipments of 33 KW installed by the Board in the Tele-Communication Subsion should be entrusted to specially trained, experienced and qualified otncers possessing specialized theoretical and practical knowledge of Tele-Communication which is a subject quite distinct from that of general Electricity and covers according to New Encyclopaedia Britannica (15th Edition) and Webster's Third New International Dictionary all types of communication at a distance as by cable, radio, tclegrapl1, telephone, teletypewriter and fascimile. Judged in this background. it is obvious that it was only the appellant who possessed degree in B.Sc. **Engineering** **in** **Tele-Communication,** **was** **separately** **recruited** **and** **spe-** cially trained in tha~ line in Switzerland and had thus acquired specialized knmYlcdge therein and acquitted himself creditablv in the field for five years. who could be said to possess the requisite qualification and be1 considered. fit and suitable for the job in question and not an} one of respondents 5 to 28 who were mere gradlmtes in Electrical Engineering, nor even' respondents 3 and 4 who had studied Tele-Communication only as one of the subjects in their final B.Sc. Engineering **Examination.** **It** **is** **patent, therefore, that the High Ccurt** **\Vas** **in** **error** in thinking that respondents 3 to 28 possessed qualification equal to the appellant or that they were eligible for the job. Turning to the other ground on which the judgment under appeal **rests viz. the violation** **_of** **guarantee of equlity cnshimed** **in** **Articles 14** and JG of the Constitution. we would like to reiterate and re-emphasize what has been oft repeated by this Court viz, that the doctrine of equality before law and equal protection of laws and equality of opportunity in the matter of employment and promotion enshimed in Articles (1) (1966] 3 S.C.R. 682. (2) [196111 S.C.R. 750. 764. #### ### . R. P. SINGH _v._ BIIIAR _(Jaswant Singh, J.)_ 793 14 and 16 of the Constitution which is intended to advance justice by avoiding discrimination is attracted only when equals are treated as unequals or where unequals are treated as equals. (See _Md._ _Usmwz_ & _Ors._ v. _State of Andhra_ _Pradesh(')._ The guarantee of equality does not imply that the same rules should be made applicable to all persons in spite o[ differences in their circumstances and conditions. (Sec _Chiranjit_ _Lal Chowdhuri_ v. _The_ _Union_ _of_ _India_ & _Ors.(')_ It is also well recognised that although Articles 14 and 16 of the Constitution forbid hostile discrimination, they do not forbid reasonable classilkation and equality of opportunity in matters ef promotion means equality as between members of the same class of em9loyces and not equality between the members of separate and independent classes. (Sec _All_ _lndia_ _Stat;on Masters'_ _&_ _Assistant Station Masters' Association_ _&_ _Ors._ v. _General Manager, Cemral Railway_ & _Ors,(")_ It must always be remembered that though the concept of equal protection and equal o;;portunity undoubtedly permeates the whole spectrum of an individual's employment from appointment through promotion and tennination to the payment of gratuity and pension, it has an inherent limi**tation arising from the very nature of** **the'** **constitutional** guarante~. Equality is for equals, that is to say those who arc similarly circumstanced are entitled to an equal treatment but the guarantee enshrined in Articles 14 and 16 of the Constitution can not be carried beyond the point which is well settled by a catena of decisions o[ this Court. A _c_ ##### .. The instant case, in our opinion, is completely covered by the dec<sicns o[ this Court in _State of Jannnu_ & _Kashmir_ v. _Triloki_ _Nath_ _Klw;a_ _&_ Ors.( [4] ) (with which both of us had ·something to do at one stage or the other), _State_ _of_ _Mysore_ v. _P._ _Narasing_ _Rao,(')_ _Ganga_ _Ram_ v. E _Cinion_ _of India(")_ and the _Union_ _of India_ v. _Dr._ _(Mrs.)_ S. _B._ _Kohli(_ _[7 ]_ _)_ Jn the _State_ _of Jammu_ _&_ _Kashmir_ v. _Trilvki_ _Nath_ _Khosea_ _&_ _Ors._ (supra) where after integration of diploma holder and degree holder Assistant Engineers in one class. it was provided by the J&K Engineering (Gazetted) Service Rules, 1970 that only those Assistant Engineers 'who possessed a degree in Engineering would be F. eligible for promotion to the post of Executive Engineer and the diploma holder Assistant Engineers who were rendered ineligible for promotion to the post of Executive Engineer filed a writ petition challenging the constitutionality of the rule and the classification on which it was claimed to be based. on the ground that once the employees are integrated into one class, they cannot for purposes of promotion be classified again into two different classes on the basis of edu- G cational differences existing at the time of recruitment, the Constitution Bench held rejecting the contention of the diploma holder Assistant Engineers that formal education may not always produce excel· Jenee b'1t a classification founded on variant educational qualifications is, for purposes of promotion to the post of an' Executive Engineer. to (!) [1971]2S.C.C.188. (3) [1960] 2 S.C.R. 3\1, 316. (5) [1968] 1S.C.R.407. (6) [197013 S.C.R. 481. (2) [19501 S.C.R. 869, 911. (4) [197411 S.C.R. 771. (7) A.LR. 1973. S.C. 811. **H** .. **A** **B** c **D** E **F** G **H** The following observations made in _State oj Mysore_ v. _P._ _Narasing_ _Rao_ (supra) will also amply repay perusal :---: "It is well settled that though Article 14 forbids class legislation, it docs not forbid reasonable classification for the purpose of legislntion. Where any impugned rule or statutory provision is assailed on the ground that it contravenes 794 SUPREME COURT REPORTS [ 1978] 1 S.C.R. say the least, not unjust on the face of it and the onus therefore cannot shift from where it originally lay. The following passages occurring in the loading judgment of our learned bruther Chandrachud, J. in that case are worth quoting: ''Jn order to establish that the protection of the equal opportunity clause has been denied to them, it is not enough for the respondents to say that they have been treated differently from others, net evc11 enough that a differential treatment has been accorded to them in comparison with others similarly circumstanced. Discrimination is the essence of classification and docs violence to the constitutional guarantee of equality only if it rests on an unreasonable basis. 1t was therefore incumbent on the respondents to plead and show that the classification of Assistant Engineers into those who hold diplomas and those who hold degrees is unreasonable and bears no rational nexus with its purported ohjccl. ... On the facts of the case, classification on the basis of educational **qualifications** **made** **\vith** **a view** **to** **achieving** **ad1ninistrativc** **cHieicncy cannot be said** **to** **rest** **on any fortuitous** **circu1nstan-** ce and one has always to bear in mind the facts and circum #### ### stances of thti case in order to judge the validity of a classification .... Educational qualifications have been recognized by this Court as a safe. criterion for determining the validity of classification. In _State_ _of_ _Mysore_ v. _P._ _Narasing_ _Rao_ (supra) where the cadre of Tracers was reorganized into two, one consisting of matriculate Tracers with a higher scale of pay and the other cf non-Matriculates in the lower scale, it was held that artic\es 14 and 16 do not exclude the laying dowu of selective tests nor do they preclude the Government from laying down qualifications for the post in question. Therefore, it was open to the Government to give preference tc candidates having higher educational qualifications. Jn _Ganga_ _Ram_ v. _Union_ _of India_ (supra), it was observed that "!he Slate which encounters diverse problems arising from a variety of circumstances is entitled to lay down conditions of efriciency for promotion in its different departments". Jn the _Union_ _of India_ v. _Dr._ _(Mrs.)_ S. _B._ _Kohli_ (supra), as refocd a classificaticn a9 between an F.R.C.S. in general surgery and an F.R.C.S. in Orthopaedics was upheld in relation to appointment to the post of a Professor of Orthooaedics on the ground that the classification made on the basis of requirement of a post graduate de?ree in particular speciality was not "without reference to the objectives sought to be **nchicve<l** **and** **there** **can be** **no** **question of discrimination".** **D** R. P. SINGH '" BIHAR _(Jaswant Singh,_ _J.)_ 795 Article 14, its validity can be sustained if two tests are satisfied. The first test is that the classification on which it is founded must be based on an intelligible differentia which distinguishes persons or things grouped together from others left out of the group, and the second test is that the differentia in question must have a reasonable relation to the object sought to be achieved by the rule or statutory provision in queslion. In other words. there must be some rational nexus h:twecn the basis of classification and the object intended to be achieved by the statute or the rule. As we have already stated, Articles 14 and 15 form part of the same constitu**tio!1nl** **code of** guarantee~ **and** **supplc1nent** **each** **other.** **lll** other words. Art. 16 is only an instance cf the application of tile general rule of equality laid doll'n in Art. 14 and it· shouid be construed as such. Hence there is no denial of equality of opportunity unless the person who complains of **discrimination** **is** **equally** **situated** **with** **the** **person** **or** **persons** who are alleged to have been favoured. Articles 16(1) docs not bar a reasonable classification of employees or reasonable tests for their selection." In tho instant case. the qualifications required for the post <'f Executrvc Engineer (Tele-Communication) as demonstrably rd1ectcd in the proposal for creation of that post and the aforesaid recommendation of the Selection Committee setting out various factors which went in favour ol' the promotion of the appellant appear to be founded on **reasonable classification having** **an** **intelligible differentia** **which** **djs-** tinguished the appellant from respondents 3 to 28 and the differentia had a reasonable relation to the object sought to be achieved. It is, therefore, crystal clear that respondents 3 to 28 did not stand at par with the appellant and had no legal right which they could claim to ll:lve been denied lo them by an authority which had a legal duty to do s0mething. With all respect the High Court was in our judgment therefore, not right in issuing the writ of mandamus. It \\'ould he useful in this context to refer to the following observations made by this Court in _Mani Suhrat Jain_ & _Ors._ v. _State_ _of_ _Harrana_ & _Or.q')_ **"lt** **is** **elementary** **though** **it** **is** **to** **be** **restated** **that** **no** one can ask for a mandamus without a legal right. There must be a judicially enforceable right as well as a legally protected **right** **before** **one suffering a** **legal** **grievance** **can** **ask** **for** **a** **1nandamus.** **A** ~·2r-;on c~1n **be** **said** **to** **b.:** **aggrieved** **only** **\vhen** **a person** **is** **denied a** **legal** **right** **by** **someone** **\Vho** **has** **a legal** duty to do something or to abstain _from_ doing something. 1See Halsbury's Laws of England. 4th Ed. \'ol. _1._ Paragraph 122: _State_ _of_ _Haryana_ v. _Subhash Chander_ _Marwaha(')_ _Jasbhai_ _Motibhai_ _Desai_ v. _Roshan_ _Kumar_ _Haji_ _Bashll'_ _Ahmed(')_ and Ferris: Extra-Ordinary Legal Remedies. paragraph 198]". A **n** c ]) E **F** G **H** (I l _[_ 1977] I S.C.C. 486. (J) [l9)(,] 3 S.C.R. _si._ 14~95lSCl/77 _(2)_ [l974] l. S.C.R. lfi5. A B 796 SUPREME COURT REPORTS [J 978] ] S.C.R. In view of the foregoing, we are unable to hold on the m~terial before us that the criterion employed by the concerned authority in promoting the appellant was arbitrary or capricious or was not intended to increase the efficiency in the functioning of the department or was based on extraneous or irrelevant considerations or suffered Imm any other vice. In the result, we allow the appeal, set aside the judgment of the High Court and uphold the aforesaid Notification No. SS/AI··10316812676-EB dated June 24, 1968 issued by the Board promot_ing the appellant as officiating temporary Executive Engineer (Tele-Communication). As respondents 3 to 28 have not appeared and contested the appeal, we make no order as to costs. S.R. _Appeal allowed._ ' # ..