Holding

Requiring a graduate degree for the LDCE, without any reserved quota for graduates, is unconstitutional as it creates an unreasonable classification violating Articles 14 and 16.

Summary

The petitioners, Maharashtra Forest Guards and Foresters Union, challenged Rule 7(2) of the 1987 Recruitment Rules which required a graduate degree to appear for the Limited Departmental Competitive Examination (LDCE) for promotion to Forester. While 75% of Forester vacancies are filled by seniority, the remaining 25% are filled through the LDCE, which has no quota reserved for graduates. The Supreme Court held that imposing a graduate qualification without any reserved quota creates a discriminatory ‘class within a class’, violating Articles 14 and 16 of the Constitution. The Court declared the graduate requirement unconstitutional, but it would not affect promotions already made. Future promotions must allow all eligible Forest Guards, irrespective of education, to compete in the LDCE. The appeal was allowed.

Issues considered

The restriction of requiring a graduate degree for participation in the LDCE violates Articles 14 and 16 of the Constitution.
Whether a classification based on educational qualification is permissible when no quota for graduates exists.
Whether Rule 7(2) imposing the graduate requirement is constitutionally valid.

Subjects

EqualityArticles 14 and 16PromotionClassificationEducational qualificationPublic serviceRecruitment RulesDiscriminationForest GuardLimited Departmental Competitive Examination

Judgment

[2017] 14 S.C.R. 446

A MAHARASHTRA FOREST GUARDS AND FORESTERS
UNION
v.
THE STATE OF MAHARASHTRA AND OTHERS
B (Civi!Appea1No.17974of2017)
NOVEMBER 03, 2017
[KURIAN JOSEPH AND R. BANUMATHI, JJ.)
Forester. Forest Guard, Ranger-Surveyor. S11rvey01: Head
C Clerk, Accountant and Clerk-cum-Typist (Recruitment) Rules. 1987
- r. 7 - Constitutionality of - On touchstone of Arts. 14 and 16 of
the Constitution of India - Educational qualification for appointment
to the post of Forest Guard as per rules is Higher Secondary School
Certificate - lt is a feeder category for promotion to the post of
Forester - By the amendment introduced in the Recruitment Rules
D in 2013, 75% of the posts in the category of Foresters to be filled
up on the basis of seniority-cum-fitness [r. 7(J){a)} and remaining
25% is to be filled up on the basis of the Limited Departmental
Competitive Examination (LDCE) [r. 7(J)(b)] - As per r. 7(2). two
conditions prescribed to participate in the LDCE (i) the candidate
E should have completed 5 years of service as Forest Guard and (ii)
the candidate should be graduate - Whether the restriction
introduced on the basis of educational qualification for participating
in the LDCE violated Arts. 14 and 16 - Held: LDCE is meant for
selection for promotion from the entire lot of Forest Guards
irrespective of seniority but suNect to minimum five years of service
F - In that situation, introducing an additional restriction of
graduation for participation in the LDCE without there being any
quota reserved for graduates will be discriminatory and violative
of Arts. 14 and 16 of the Constitution of India since it creates a
class within a class - It violates the equality and equal opportunity
G guarantees - Forest Guards. irrespective of educational
qualifications, have formed ·one class for the purpose of
participation in the LDCE - A further classification between
graduates and non-graduates for participating in the LDCE is
unreasonable - It is a case of equals being treated unequally -
r. 7(2) to the extent that it imposes the requirement of being a graduate
H
446
MAHARASHTRA FOREST GUARDS AND FORESTERS 447
UNION v. STATE OF MAHARASHTRA

is unconstitutional - Constitution of India -Arts. 14 and 16 - Service A
Law - Promotion - Restriction on the basis of educational
qualification.
Allowing the appeal, the Court
HELD: 1. There is no quota reserved for the graduate
Forest Guard for promotion to the post of Forester. Seventy-five B
per cent of the posts are to be filled through the regular promotion
channel based on seniority and twenty-five per cent is ''bv selection
of suitable persons from amongst the persons holding the post of
Forest Guard, on the basis of common merit list prepared by the
Additional Principal Chief Conservator of Forests (Administration c
Subordinate Cadre), Maharashtra State, Nagpur, on the basis of
result of the "Limited Departmental Competitive Examination. ... ".
[Para 16](454-F-G]
2. The challenge is on the further rigor put on the eligibility
to appear in the LDCE. The whole purpose of the LDCE is to D
encourage and facilitate the Forest Guards to get accelerated
promotion on the basis of merit. Since seniority is the criterion
for promotion to three-fourth of the posts, one-fourth is given a
chance to compete in a competitive examination. It is also to be
noted that there is no quota prescribed on the basis of higher
educational qualification. The situation would have been different E
if, in the first place, there had been a classification wherein 75
per cent of the posts have to be filled based on seniority and 25
per cent reserved for graduates and again subject to inter-se merit
in the competitive examination. That is not the situation in the
present case. The LDCE is meant for selection for promotion F
from the entire lot of Forest Guards irrespective of seniority but
subject to minimum five years of service. In that situation,
introducing an additional restriction of graduation for participation
in the LDCE without there being any quota reserved for graduates
will be discriminatory and violative of Articles 14 and 16 of the
Constitution of India since it creates a class within a class. The G
merit of t_he 25 per cent cannot be prejudged by a sub-
classification. It violates the equality and equal opportunity
guarantees. The Forest Guards, irrespective of educational
qualifications, having formed one class for the purpose of
participation in the LDCE, a further classification between H

\
. \
448 SUPREME COURT REPORTS [2017] 14 S.C.R.

A graduates and non-graduates for participating in the LDCE is
unreasonable. It is a case of equals being treated unequally. [Para
17)(454-H; 455-A-D]
3. Rule 7(2) of the Recruitment Rules to the extent that it
imposes the requirement of being a graduate is declared
B unconstitutional. However this judgment shall not affect the
promotions already made. But for further promotions, the LDCE
shall be held afresh granting opportunity to all eligible Forest
Guards. [Para 18]1455-E]
Roshan Lal Tandon v. Union of India (1968] 1 SCR
c 185; State of Mysore and another v. P. Narasing Rao
[1968] 1 SCR 407; The State of Jammu and Kashmir v.
Shri Triloki Nath Khosa and others (1974) 1 SCC 19 :
[1974) 1 SCR 771; TR. Kothandaraman and others v.
Tamil Nadu Water Supply and Drainage BD and others
(1994) 6 sec 282 : (1994] 3 Suppl. SCR 513 -
D referred to.
Case Law Reference
(1968) 1 SCR 185 referred to Para8
[1968] 1 SCR 407 referred to Para9
E
(1974] 1 SCR 771 referred to Para 10
[1994) 3 Suppl. SCR 513 referred to Para 13
CIVIL APPELLATE JURISDICTION: Civil Appeal No. 17974
of2017.
F From the Judgment and Order dated 01.07.2016 of the High Court
of Judicature at Bombay at Nagpur in Writ Petition No. 2464 of2016.
Satyajit A. Desai and Ms. Anagha S. Desai, Advs. for the
Appellant.
G Shekhar Naphadc, Sr.Adv., Nishant Ramakantrao Katneshwarkar,
K. Parameshwar, Shivaji M. Jadhav, Abbay Sambre, Amit B. (For Mis.
S. M. Jadhav And Company), Somiran Sharma and Sandeep Dere,Advs.
for the Respondents.

H
MAHARASHTRA FOREST GUARDS AND FORESTERS 449
UNION v. STATE OF MAHARASHTRA

The Judgment of the Court was delivered by A
KURIAN, J. 1. Leave granted.
2. The short but complex question arising for consideration in this
case is whether the restriction introduced on the basis of educational
qualification for participating in a Limited Departmental Competitive
Examination (hereinafter referred to as "LDCE") violates Articles 14 B
and 16 of the Constitution of India.
3. Undisputed facts of the case: The educational qualification for
appointment to the post of Forest Guard in the Forester, Forest Guard,
Ranger-Surveyor, Surveyor; Head Clerk, Accountant and Clerk-cum-
Typist (Recruitment) Rules, 1987 (hereinafter referred to as "the c
Recruitment Rules") is Higher See-0ndary School Certificate (hereinafter
referred to as "HSSC"). It is a feeder category for promotion to the post
of Forester. The relevant part of the Recruitment Rules, as amended in
2013, read as follows:
"Rule -7. (1) Appointment to the post of Forester in the Forest D
Department shall be made either:-
( a) by promotion of a suitable person from amongst the persons
holding the post of Forest Guard on the basis of seniority as
rurr the circle gradation list and subject to fitness, having not
less than three years regular service in that post; or
E
(b) By selection of a suitable person from amongst the persons
holding the post ofF orest Guard, on the basis of common merit
list prepared by the Additional Principal Chief Conservator of
Forests (Administration Subordinate Cadre), Maharashtra
State, Nagpur, on the basis of result of the "Limited
Departmental Competitive Examination", conducted by the F
Chief Conservator of Forests (Education and Training), Punc
on the basis of rules made for the Limited Departmental
Competitive Examination by the Government, from time to time.
(2) For appearing in the examination the candidates shall, -
(a) have completed five years ofrcgular service as Forest Guard G
in the Forest Department;
(b) possess a degree of a statutory university or any other
qualification declared by the Government to be equivalent
thereto;"
(Emphasis supplied) H

\
450 SUPREME COURT REPORTS [2017] 14 S.C.R.

A 4. By the amendment introduced in the Recruitment Rules, 75 per
cent of the posts in the ·category of Forester are to be filled up on the
basis of seniority-cum-fitness (Rule 7(1 )(a)). The remaining 25 per cent
is to be filled up on the basis of the LDCE (Rule 7(1 )(b)).
5. Two main conditions have been prescribed to participate in the
B competitive examination - (i) the candidate should have completed
minimum five years of service as Forest Guard and (ii) the candidate
should be a graduate. It is the contention of the appellant that as far as
the first condition is concerned, the Department is well within its
competence to prescribe eligibility of minimum experience for a Forest
Guard to get promoted as Forester even on the basis of the competitive
c examination since the post of Forester requires experience in service
and exposure in the field. However, introducing a further restriction on
the basis of educational qualification to participate in the LDCE is
discriminatory. -
6. The contention of Shri Shekhar Naphade, learned Senior
D Counsel appearing for the State is that the whole purpose behind the
amendment was to introduce young blood in the post of Forester where
they have to undertake physically challenging responsibilities as well,
and that is why preference is sought to be given to graduates. Laudable
may be the object but the implementation of the policy behind the object
E can only be in accordance with law. If the young graduates are otherwise
intellectually sharp and educationally proficient, they would prove to be
more meritorious in the competitive LDCE. As the Rules now stand,
opportunity has to be thrown open to the youngsters who are non-
graduates also in the seniority list but who have completed the required
number of years of service and yet are otherwise alert, efficient and
F proficient. Denial of the same would certainly be violative ofArticles 14
and I 6 of the Constitution.
7. We are afraid, the reference made by the learned Senior Counsel
to the Constitution Bench decisions of this Court is ofno avail. There is
no quarrel with the well-settled proposition that there can be a
G classification based on the educational qualification if so warranted by
the circumstances. But that is not what has been done in the present
case. Based on the educational qualification, a class within a class has
been created violating the guarantee of equality by restricting the
participation in the LDCE only to graduates.
H
MAHARASHTRA FOREST GUARDS AND FORESTERS 451
UNION v. STATE OF MAHARASHTRA [KURIAN, J.]

8. The Constitution Bench Judgment of this Court in Roshan Lal A
Tandon v. Union oflndia 1, is a case where direct recruits i.e. apprentice
train ·examiner, and promotces i.e. skilled artisans were integrated into
one group as Grade-'D'. Thereafrer, 80 per cent vacancies in Grade-
'C' were to be filled up from class of apprentice train examiners and the
remaining 20 per cent from among the train examinci:s on the basis of
B
selection. That was held to be bad on the ground that "once the direct
recruits and promotees are absorbed in one cadre. they form one
class and they cannot be discriminated for the purpose of further
promotion to the higher grade- 'C "'. ·
9. In State of Mysore and another v. P. Narasing Rao 2, the
same Constitution Bench held the higher qualification ofS.S.L.C. to be C
a relevant consideration for fixing higher pay-scale than that of non-
matriculate tracers. That classification, on the basis ofhililherqualification,
was upheld.
10. The State of Jammu and Kashmir v. Shri Triloki Nath
Khosa and others3 is a later Constitution Bench decision of 1973 where D
Roshan Lal (supra) and Narsing Rao (supra) have been discussed.
The question posed in Triloki Nath Khosa (supra) is as follows - "if
persons drawn from different sources are integrated into one Class.
can they he classified for purposes of promotion on the basis of
their educational qualzfications? ". That was answered in the E
affirmative. This was a case where promotion from the integrated cadre
of Assistant Engineers to Executive Engineers was limited to persons
possessing a Bachelors Degree in Engineering or equivalent-with seven
years service. It was held :
"31. Classification, however, is fraught with the danger that it
may produce artificial inequalities and therefore, the right to classity F
is hedged in with salient restraints; or else, the guarantee of equality
will be submerged in class legislation masquerading as laws meant
to govern well marked classes characterized by different and
distinct attainments. Classification, therefore, must be truly founded
on substantial differences which distinguish persons grouped G
together from those left out of the group and such differential
'attributes must bear a just and rational relation to the object sought
to be achieved.
I (1968) 1 SCR 185
2
(1968) 1SCR407
' (1974) 1 sec 19 H

\
452 SUPREME COURT REPORTS [2017] 14 S.C.R.

A xxx xxx xxx xxx
50. We are therefore of the opinion that though persons appointed
directly and by promotion were integrated into a common class of
Assistant Engineers, they could, for purposes of promotion to the
cadre of Executive Engineers, be classified on the basis of
B educational qualifications. The Rule providing that graduates shall
be eligible for such promotion to the exclusion of diploma-holders
does not violate Articles 14 and 16 of the Constitution and must
be upheld."
11. There was also no sub-classification as in the instant case.
c Having upheld the Rule, it was further held at paragraph-51 as follows:
"51. But we hope that this judgment will not be construed as a
. charter for making minute and microcosmic classifications.
Excellence is, or ought to be, the goal of all good governments
and excellence and equality are not friendly bed-fellows. A
D pragmatic approach has therefore to be adopted in order to
harmonize the requirements ofpublic services 'With the aspirations
of public servants. But let us not evolve, through imperceptible
extensions, a theory of classification which may subvert, perhaps
submerge, the precious guarantee of equality. The eminent spirit
of an ideal society is equality and so we must not be left to ask in
E wonderment: What after all is the operational residue of equality
and equal opportunity?"
(Emphasis supplied)
12. The concurring words of Krishna Iyer, J. at paragraphs-57
F and 58 are also relevant:
"57. Mini-classifications based on micro-distinctions are false to
our egalitarian faith and only substantial and straightforward
classifications plainly promoting relevant goals can have
constitutional validity. To overdo classification is to undo equality.
If in this case Govenunent had prescribed that only those degree
G
holders who had secured over 70 per cent marks could become
Chief Engineers and those with 60 per cent alone be eligible to be
Superintending Engineers or that foreign degrees would be
preferred we would have unhesitatingly voided it.

H
MAHARASHTRA FOREST GUARDS AND FORESTERS . 453
f' ". UNION v. STATE OF MAHARASHTRA [KURIAN, J.]

"58. The role of classification may well recede in the long run, A
and the finer emphasis on broader equalities implicit in the
,,,. :i • concluding thought of the leadingjudgment will abide. The decision
in this case should not- and does not- imply that by an undue
accent on qualifications the Administration can cut back on the
larger tryst of cqualitarianism or may hijack the founding and B
fighting faith of social justice into the enemy camp of intellectual
domination by an elite. The Court, in extreme cases, has to be the
· sentinel on the qui"vive."
(Emphasis supplied)
It may be seen that it is a case where promotion to the' post of C
Executive Engineer and above was wholly assigned to graduates, a
classification based on educational qualification. There is no such
reservation or even a quota reserved for graduates in the instant case.
13. T.R. Kothandaraman and others v. Tamil Nadu Water
Supply and Drainage BD and others 4 discussed all the previous D
judgments on classification and held at paragraph-13 as follows:
"13. The aforesaid bird's-eye view of important decisions of this
Court on the question of prescribing quota in promotion to higher
post based on the educational qualification makes it clear that
such a qualification can in certain cases be a valid basis of E
classification; and the classification need not be relatable only to
the eligibility criteria, but to restrictions in promotion as well. Further,
even if in a case the classification would not be acceptable to the
court on principle, it would, before pronouncing its judgment, bear
in mind the historical background. It is apparent that while judging
the validity of the classification, the court shall have to be conscious F
about the need for maintaining efficiency in service and also
whether the required qualification is necessary for the discharge
of duties in the higher post."
14. Having held so, the legal position was summarised at paragraph-
16, which reads as follows: G
"16. From what has been stated above, the following legal
propositions emerge regarding educational qualification being a
· basis of classification relating to promotion in public service:
• (1994) 6 sec 2s2
H

\
454 SUPREME COURT REPORTS [2017] 14 S.C.R.

A (1) Higher educational qualification is a permissible basis of
classification, acceptability of which will depend on the facts
and circumstances of each case.
(2)Higher educational qualification can be the basis not only for
barring promotion. but also for restricting the scope of
B promotion.
(3) Restriction placed cannot however go to the extent of seriously
jeopardising the chances ofpromotion. To decide this, the extent
of restriction shall have also to be looked into to ascertain
whether it is reasonable. Reasons for this are being indicated
c later."
(Emphasis supplied)
15. It was a case where the validity of the Rule which prescribed
ratio of 3:2 for direct recruits and promotees - the former being degree
holders and latter being diploma holders was challenged as violative of
D Articles 14 and 16 of the Constitution of India. It was held that higher
educational qualification has relevance in so far as holding of higher
promotional post is concerned in view of the nature of function and
duties attached to the post. Still further, this Court held that prescribing a
lesser quota for diploma holders does not suffer from such an infirmity
E as to make a diploma holder totally unfit for holding the post and hence
the ratio was not "inequitable so as to mock at the guarantee of equality".
16. The factual and legal position in the instant case is entirely
different. There is no quota reserved for the graduate Forest Guard for
promotion to the post of Forester. Seventy-five per cent of the posts are
to be filled through the regular promotion channel based on seniority and
F
twenty ..five per cent is "bv selection ofsuitable persons from amongst
the persons holding the post o[Forest Guard, on the basis of common
merit list prepared by the Additional Principal Chief Conservator
of Forests (Administration Subordinate Cadre). Maharashtra State,
Nagpur, on the basis of result of the "Limited Departmental
G Competitive Examination . ..... ".
17. The challenge is on the further rigor put on the eligibility to
appear in the LDCE. The whole purpose of the LDCE is to encourage
and facilitate the Forest Guards to get accelerated promotion on the
basis of merit. Since seniority is the criterion for promotion to three-
H
MAHARASHTRA FOREST GUARDS AND FORESTERS 455
UNION v. STATE OF MAHARASHTRA [KURIAN, J.]

fourth of the posts, one-fourth is given a chance to compete in a A
competitive examination. It is also to be noted that there is no quota
prescribed on the basis ofhigher educational qualification. The situation
would have been different if, in the first place, there had been a
classification wherein 75 per cent of the posts have to be filled based on
seniority and 25 per cent reserved for graduates and again subject to B
inter-se merit in the competitive examination. That is not the situation in
the present case. The LDCE is meant for selection for promotion from
the entire lot of Forest Guards irrespective of seniority but subject to
minimum five years of service. In that situation, introducing an additional
restriction of graduation for participation in the LDCE without there
being any quota reserved for graduates will be discriminatory and violative C
of Articles 14 and 16 of the Constitution of India since it creates a class
within a class. The merit of the 25 per cent cannot be prejudged by a
sub-classification. It violates the equality and equal opportunity
guarantees. The Forest Guards, irrespective of educational qualifications,
having formed one class for the purpose of participation in the LDCE, a D
further" classification between graduates and non-graduates for
participating in the LDCE is unreasonable. It is a case of equals being
treated unequally.
18. Rule 7(2) of the Recruitment Rules to the extent that it imposes
the requirement ofbeing a graduate is declared unconstitutional. However
this judgment shall not affect the promotions already made. But for further E
promotions, the LDCE shall be held afresh granting opportunity to all
eligible Forest Guards.
19. The appeal is allowed as above. There shall be no order as to
costs.
F

Ankit Gyan Appeal allowed.