Ankita Thakur & Ors. v. the H.P. Staff Selection Commission & Ors.

Supreme Court of India · 2023 INSC 992 · 2023

Coram: HRISHIKESH ROY, MANOJ MISRA

JUDGMENT MANOJ MISRA, J. 1. Leave granted. 2. All these appeals are directed against a common judgment and order 1 of the High Court 2 disposing of a batch of writ petitions as well as intra-court appeals concerning recruitment on the post of Junior Oﬃ ce Assistant3 , a Class III (Non-gazetted) post, under the Government of Himachal Pradesh 4 . There being a commonality of law and facts concerning these appeals, they are being decided by a common judgment. Factual Matrix 3. As these appeals arise from multiple proceedings, a disclosure of relevant facts in a chronological order would be apposite. These facts are set out below: (A) On 24.12.2014, Himachal Pradesh, Department of Per sonnel, Junior Office Assistant (Information Technology), C lass-III, (Non-Gazetted), Ministerial Services, Common Recruit ment and Promotion Rules, 2014 5 , framed under the proviso to Article 309 of 1 Order dated 31.12.2021 2 High Court of Himachal Pradesh 3 JOA 4 Govt. 5 2014 Rules 817 the Constitution of India 6 , were notiﬁ ed with a view to have common recruitment and promotion rules for the post of JOA in various departments of the Government. Relevant provisions of t he 2014 Rules are detailed below: (1) Rule 7 prescribed qualiﬁ cations for the post o f JOA as follows: “(a) Essential Qualiﬁ cation: (i) 10 + 2 from a recognized Board of School Education/University, (ii) One year diploma in Computer Science/ Computer Application/ Information Technology from a recognized University/Institution and (iii) Computer typing speed of 30 words per minute in English or 25 words per minute in Hindi OR (i) 10 + 2 from a recognized Board or School Education/University. (ii) ‘O’ or ‘A’ level Diploma from National Institute of Electronics & Information Technology (NIELIT) (iii) Computer typing speed of 30 words per minute in English or 25 words per minute in Hindi OR (i) 10 + 2 from a recognized Board or School Education/University. (ii) Diploma in Information Technology (IT) from a recognized ITI/Institution. (iii) Computer typing speed of 30 words per minute in English or 25 words per minute in Hindi 6 Constitution ANKITA THAKUR & ORS. v. THE H.P. STAFF SELECTION COMMISSION & ORS. [MANOJ MISRA, J.] (b) Desirable Qualiﬁ cation(s): Knowledge of customs, manners and dialects of Himachal Pradesh and suitability for appointment in the peculiar conditions prevailing in the Pradesh.” (2) Rule 15 prescribed the mode of selection for appointment to the post by direct recruitment as follows: “Rule 15. Selection for appointment to the post by direct recruitment – Selection for appointment to the post in the case of direct recruitment shall be made on the basis of viva-voce test, if Himachal Pradesh Public Service Commission or other recruiting authority, as the case may be, so consid er necessary or expedient by a written test or practical test, the standard/ syllabus, etc. of which will be determined by the Commission or other recruiting authority, as the case may be.” (3) Rule 18 conferred power on the State Govt. to relax any of the provisions of the Rules in following terms: “Rule 18. Power to Relax – Where the State Govt. is of the opinion that it is necessary or expedient to do so, it may, by order for reasons to be recorded in writing and in consultation with the Himachal Pradesh Public Service Commission, relax any of the provision (s) of these rules with respect to any class or category of person (s) o r post(s).” (B) On 13.02.2015, Himachal Pradesh Subordinate Services Selection Board 7 vide Advertisement No. 30 of 2015 invited applications for selection / appointment on 1421 post (s) of JOA (Post Code 447) prescribing same qualiﬁ cations as in Rule 7 of the 2014 Rules. The last date for submission of application was 18.03.2015. However, for residents of certain districts, it was 02.04.2015. But the date(s) were 7 Selection Board 819 extended up to 31.10.2015. Clause 4 of the general conditions in the advertisement speciﬁ cally provided that, “the candidate must fulﬁ l / possess all the required essential educational and other qualiﬁ cations mentioned against each code on or before the last date ﬁ xed for the receipt of application forms, otherwise the candidature will be rejected at the time of Personal Interview.” (C) As large number of applicants had done their computer course from Private Institutes, the Principal Secretary (Education) to the Govt. was requested to inform: (i) whether a candidate could be considered eligible if he has certiﬁ cate / diploma from any registered Institute , whether operating within or outside the State; (ii) the name(s) / list of registered / recognized institutes whose diplomas / certiﬁ cates could be considered valid for determining eligibility for the post. (D) In response to the above, on December 2, 2015, the Additional Chief Secretary (Personnel) to the Govt. wrote a letter to the Selection Board stating: “It is informed that the provisions of the Rules regarding essential qualiﬁ cations are crystal clear which provides that Diploma in Computer Science, Computer Application, Information Technology from a recognized University / Institution/ITI OR “O” Or “A” level diploma from National Institute of Electronics and Information Technology (NIELIT) only are required and the question of registered/ unregistered institution does not arise. As regard the information on point-II, the clariﬁ cation can be obtained by you from the Education Department or IT Department.” (E) The above stand was reiterated in letter dated February 25, 2016. However, as list of registered / recognized institutes, whose diplomas / certiﬁ cates were valid / recognized for determining eligibility to the post, was not available, the Commission wrote a letter to the Director of Higher Education, Himachal Pradesh, marking its copies to Additional Chief Secretary (Education), Govt., Director IT, Govt. and Secretary, ANKITA THAKUR & ORS. v. THE H.P. STAFF SELECTION COMMISSION & ORS. [MANOJ MISRA, J.] H.P. Board of School Education, Dharamshala, for a list of recognized institutions / institutes. (F) Pursuant to the correspondences above, the Dire ctorate of Higher Education, Himachal Pradesh, Shimla, vide letter dated 27.05.2017, provided a list of institutions recognized by Himachal Pradesh Takniki Shiksha Board 8 , Dharamshala, District Kangra, Himachal Pradesh. (G) In between, candidature of several candidates was rejected for not possessing essential qualiﬁ cations as prescribed by the 2014 Rules. Aggrieved by rejection of their candidature, some of these candidates preferred Original Applications 9 (for short O.A.) before the Tribunal 10 , wherein an interim order was passed on 30.06.2017. The operative portion of which is extracted below: “All the applicants are 10+2. However, the nomenclatures of the one-year diploma held by them in Computer is not in consonance with the nomenclature of the diploma mentioned in the aforesaid education qualifications . However, prima facie, it is made out that they are holding one year diploma in computer. In such circumstances, there shall be a direction in the interim to the Respondent Commission to permit the applicants, who admittedly have already appeared in the written/Typing Test, to appear in the interview, provisionally. However, their result shall not be declared and instead kept in a sealed cover till the matter with regard to equivalence of the diploma held by them with the diploma required as per the aforesaid educational qualiﬁ cations is considered and decided by the newly added Respondent No.2- State, which shall be done as expeditiously as possible but within the reasonable time frame.” 8 Takniki Board 9 O.A. Nos.2830, 2989, 2994, 2998, 3009 and 3026 of 2017 10 Himachal Pradesh State Administrative Tribunal 821 (H) In deference to the above order, the Commission sought directions / clariﬁ cations / guidance from the Govt., inter alia , on the following issues: (1) Whether the diplomas possessed by those applica nts equivalent to the diploma required by the Rules. (2) Whether diploma / certiﬁ cate obtained from private Institutes, regarding which there was no information about their recognition, could be considered as one from a recognized Univer sity / Institute. (I) Pursuant to that, the Commission was informed about the Govt.’s decision dated 21.08.2017, which was in the following terms: “(1) All such candidates having one year Diploma in Computer or higher qualiﬁ cation in Computer Science/ Application/IT from any private Institution like fr om Society under Societies Act, Rashtriya Saksharta Mission IT programme/Skill Development Programme etc. be considered for ﬁ nal selection subject to having successfully passed their skill test i.e. Typing Test on Computer and after having obtained their undertaking/ declaration certifying that they had attended the classes/ diploma course by attending the classes regularly. (2) That the Computer Science is not limited to the speciﬁ c nomenclature of Diploma prescribed in the R&P Rules , as such, the Diploma in Computer and other Higher Qualiﬁ cations belonging to Computer Science/ application irrespective of their nomenclature be also consider ed for ﬁ nal selection subject to having successfully passed their skill test i.e. Typing Test on Computer and a fter having their undertaking/declaration certifying that t hey had attended the classes/diploma course by attendin g the classes regularly. There may be instance where certiﬁ cates are issued instead of diploma, in such cases, the Commission is to ascertain and ensure that subject s studied are at par with one year Diploma course in Computer Science/ Application/lT. ANKITA THAKUR & ORS. v. THE H.P. STAFF SELECTION COMMISSION & ORS. [MANOJ MISRA, J.] (3) The date of personal interview of the candidate concerned in the instant case be treated as valid date for evaluation/ consideration/ acceptance of his/ her diploma/ essential qualiﬁ cation. (4) With regard to educational qualiﬁ cation, as informed during the meeting, the Commission has sought clariﬁ cation of equivalence in some cases from the concerned authorities, therefore, the Commission need to proceed further i n accordance with the clariﬁ cation/ decision obtained from the State Level Board of Equivalence Committee / H.P. Board of School Education by accepting the qualiﬁ cation of such candidate(s) for his job if that is found equivalent to 10+2 and valid for pursuing higher studies.” (J) As a result of the above decision, many candidates who, as per the 2014 Rules, were not eligible, came within the zone of consideration and as such included in the select list, resulting in ouster of suc h candidates who, though lower on merit, were otherwise eligible a s per the 2014 Rules. Therefore, some of those ousted candidates laid a challenge to the merit list before the Tribunal through O.A. No. 5543 of 2017 which, consequent to abolition of the Tribunal, came to be transferred to the High Court and was registered as Writ Petition No. 34 of 2019. Notably, though O.A. No. 5543 of 2017 was ﬁ led after declaration of the ﬁ nal select list, only three or four selected candidates were initially impleaded as opposite parties. (K) While the recruitment / selection exercise under the Advertisement dated 13.02.2015 was ongoing, a fresh Advertisement No. 32-3/2016, dated 18.10.2016, was issued by the Commission inviting applications for another set of 1156 posts of JOA (IT) (Post Code 556) with t he same qualiﬁ cations as prescribed in the 2014 Rules. (L) At this stage, it would be relevant to point out that, broadly, two sets of cases cropped up from the recruitment exercise for Post Code 447, namely, (i) O.A. Nos. 2830; 2989; 2994; 2998; 3009; and 3026 of 2017, which came to be renumbered as Writ Petition Nos. 2253; 2289; 823 2290; 2388; 2394; and 7681 of 2020 before the High Court after abolition of the Tribunal. These cases were at the instance of candidates whose candidature was rejected for not possessi ng qualiﬁ cations as prescribed by the 2014 Rules. (ii) O.A. No. 5543 of 2017, ﬁ led on 13.10.2017, which, upon transfer to the High Court, came to be registered a s Writ Petition No. 34 of 2019 before the High Court. This was by those candidates who were not placed in the select list. The ir claim was that the relaxation order dated 21.08.2017 resulted in inclusion of ineligible candidates and, therefore, they were ousted from the merit list. In this O.A. No. 5543 of 2017), the relief(s) sought were: (i) That clariﬁ cation dated 21.08.2017 and Oﬃ ce Order dated 18.09.2017 be quashed and set aside; and (ii) That Commission be directed to prepare a merit list from amongst those candidates who possess essential and minimum qualiﬁ cation as mentioned in Advertisement No. 30 of 2015, dated 13.02.2015, and make recommendation accordingly. (M) As in between, another Advertisement (i.e., for Post Code 556) was issued, the State Government vide letter dated 19.03.2018 directed the Commission to apply the clariﬁ cation issued on 21.08.2017 for Post Code 556 as well. The relevant portion of the letter dated 19.03.2018 is extracted below: “l am directed to refer to your letters No. HPSSC-C(2)-970/16 dated 01-01-2018 & 16-02-2018 on the subject cited above and to say that since the posts of Junior Oﬃ ce Assistant (IT), Class-III (Non-Gazetted) have been advertised under diﬀ erent post codes i.e., Post Code 447 and 556 but are to be ﬁ lled up under one set of common Recruitment & Promotion Rules for the post and as such carry one or similar cadre, it has been decided that the clariﬁ cation dated 21-08-2017, issued by this department on the directions of Hon’ble Himachal Pradesh Administrative Tribunal in respect of ANKITA THAKUR & ORS. v. THE H.P. STAFF SELECTION COMMISSION & ORS. [MANOJ MISRA, J.] Post Code 447, be also implemented in the on-going process under Post Code 556, being recruitment for the same post with similar provisions of rules. However , the clariﬁ cation/ instructions dated 21-08-2017 are under challenge before the Hon’ble Court, as such, its implementation will be subject to ﬁ nal outcome of Hon’ble Court orders so passed in case of post code 447 in the pending matters.” (N) The above decision of the State Government gave rise to another set of litigation (i.e., Writ Petition No. 7585 of 2019) filed by candidates desirous of selection strictly as per the 2014 Rules. Whereas candidates who sought beneﬁ t of the relaxation directed vide letter dated 19.03.2018 ﬁ led another set of petitions. This latter bunch of petitions were allowed by a Single Judge Bench of the High Cour t. Against which, the Commission preferred an intra-court appeal before a Division Bench of the High Court. (O) At this stage, it be clariﬁ ed that despite request to apply the relaxation accorded for Post Code 447 on Post Code 556 as well, the select list for Post Code 556 was prepared strictly in ac cordance with the 2014 Rules, because in O.A. No. 2644 of 2018, which later came to be registered as Writ Petition No. 7585 of 2019, the Tribunal, vide order dated 16.08.2018, had allowed declaration of results in the following terms: “In the facts and circumstances, materials on record and interest of justice, subject to keeping ﬁ fteen posts of Junior Oﬃ ce Assistant vacant for the applicants and ﬁ nal outcome of the original application, respondent no. 3-Commission shall be free to declare the result of the process for recruitment to the post of Junior Oﬃ ce Assistants.” The above order was assailed before the High Court through Writ Petition No. 1964 of 2018, which was disposed of vide order dated 28.08.2018 in the following terms: “ In this background we clarify that the appointments to the posts of Junior Oﬃ ce Assistant (Code 556) shall be strictly in accordance with the Common Recruitment & 825 Promotion Rules for the posts of Junior Oﬃ ce Assistant (Information Technology), Class-Ill (Non-gazetted) in various Departments of Himachal Pradesh Government, as also Advertisement No. 32-3/2016 and not in terms of communication, dated 19 th March 2018.” A review of the order dated 28.08.2018 was sought, which was decided on 05.11.2018 in the following terms: “Be that as it may, as the matter is sub judice before the learned Tribunal and the Committee which has submitted its report on 21.08.2017, has been so constituted by the learned Tribunal, its recommendations, can be looked into by the learned Tribunal uninﬂ uenced by any observation made by this Court in the perspective of the Common Recruitment & Promotion Rules, in the backdrop of the controversy involved in the application before it.” (P) In between, another O. A. No. 7397 of 2018 was ﬁ led before the Tribunal praying that persons holding qualiﬁ cations other than the one prescribed be not considered for selection. On this application, an order dated 21.12.2018 was passed requiring the Commission to make selections against Post Code 556 strictly as per 2014 Rules. (Q) The order of the Tribunal dated 21.12.2018 was challenged before the High Court in Writ Petition No. 161 of 2019. Therein, on 11.01.2019, an interim order was passed in the following terms: “Meanwhile the operation of the impugned order dated 21.12.2018 (Annexure P-7) passed by Himachal Pradesh Administrative Tribunal in O.A. No. 7397 of 2018 shall remain stayed. However, the Staﬀ Selection Commission shall only allow the eligible candidates to participate in the process.” (R) In the light of various interim orders, after ca rrying out the selection process, the Commission declared result of Post Code 556 on 23.02.2019 thereby recommending 596 candidates only. While doing so, candidature of several candidates, who were found ineligible under the 2014 Rules, was rejected. ANKITA THAKUR & ORS. v. THE H.P. STAFF SELECTION COMMISSION & ORS. [MANOJ MISRA, J.] (S) The candidates who were rejected as ineligible approache d the Tribunal. On 26.02.2019, the Tribunal, in O.A. No. 677 of 2019 (later registered as Writ Petition No. 20 of 2019), directed status quo with regard to appointments pursuant to the declared result for Post Code 556. (T) Aggrieved by the order of the Tribunal dated 26.02.2019, a group of selected candidates ﬁ led Writ Petition No. 629 of 2019 before the High Court. On 29.08.2019, Writ Petition Nos. 161 of 2019 and 629 of 2019 were ﬁ nally decided, whereby Writ Petition No. 161 of 2019, ﬁ led by candidates claiming to possess qualiﬁ cations higher than prescribed, was dismissed; and Writ Petition No. 629 of 2019 ﬁ led against the interim order dated 26.02.2019 was allowed. (U) The order dated 29.08.2019 passed in Writ Petition Nos. 161 of 2019 and 629 of 2019 was subjected to a Special Leave Petition (Civil) No. 45 of 2021, which was dismissed by this Court vide order dated 15.11.2021. In these circumstances, selection / recruitment for Post Code 556, under the Advertisement dated 18.10.2016, was carried out strictly in accordance with the 2014 Rules. And 531 posts advertised for Post Code 556 remained unﬁ lled. (V) There was another petition, namely, writ Petition No.2246 of 2019, ﬁ led by candidates who were excluded from consideration though they held equivalent qualiﬁ cations for Post Code 556. Here, an interim order was passed directing that any appointment against Post Code 556 shall be subject to the orders passed in that petition. (W) On 06.12.2019, the State Government directed the Commission to treat the recruitment process for Post Code 556 concluded. It also requested the Commission to re-advertise the unﬁ ll ed posts and carry out recruitment as per new Common Recruitment & Promotion Rules of the year 2020, which prescribed the essential qualiﬁ cations as follows: “(a) ESSENTIAL QUALIFICATION(S): (i) Should have passed 10+2 from a recognized Board of School Education /University. OR 827 Matriculation from recognized Board of School Education with one/two year’ s Diploma/Certiﬁ cate from an Industrial Training Institute (ITI) in Information Technology Enabled Sectors (ITES) as notiﬁ ed by Director General of Employment & Training (Govt. of India) from time to time or three years Diploma in Computer Engineering / Computer Science/ IT from Polytechnic as approved by All India Council for Technical Education (AICTE).” (X) Pursuant thereto, on 21.09.2020, a fresh advertisement No. 36- 2/2020 was issued by the Commission inviting applications for the post of Junior Oﬃ ce Assistant-JOA (IT) (Post Code 817). (Y) On issuance of fresh advertisement, in Writ Petition No. 2246 of 2019, following interim order was passed: “Pursuant to Advertisement No. 36-2/2020 dated 21.09.2020, issued by respondent-HPSSC for the post of Junior Oﬃ ce Assistant-JOA (IT), the respondent-Himachal Pradesh Staﬀ Selection Commission, Hamirpur is permitted to proceed with the recruitment process, however , the ﬁ nal result shall not be announced without permission of this Court. Applications stand disposed of.” Summary of the Litigation before the High Court 4. A conspectus of the narration above would indicate that litigation emanated from three successive advertisements issued by the Select ion Board/ Commission inviting applications for the post of JOA (IT). The ﬁ rst advertisement is dated 13.02.2015 for 1421 posts (i.e., Post Code 447). The second is dated 18.10.2016 for 1156 posts (i.e., Post Code 556); and the third is dated 21.09.2020 for 1869 posts (i.e., Post Code 817). 5. Under the ﬁ rst advertisement for Post Code 447, the advertised posts were ﬁ lled with the aid of the order dated 21.08.2017, which relaxed the advertised eligibility conditions. The litigation therein was initiated by two sets of candidates. One set comprised of those whose candidature got rejected because they failed to meet the eligibility criteria prescribed in the advertisement and the 2014 Rules. The other set comprised of those candidates who were aggrieved by relaxation of the eligibility criteria as it expanded the ANKITA THAKUR & ORS. v. THE H.P. STAFF SELECTION COMMISSION & ORS. [MANOJ MISRA, J.] zone of consideration and thereby reduced their chance of selection. They, therefore, questioned the validity of the order of relaxation dated 21.08.2017 as also the selection made thereunder. The challenge laid by them was to the eﬀ ect that once the 2014 Rules prescribed the essential qualiﬁ cations, and the advertisement prescribed the same essential qualiﬁ cations without reserving any power to relax the same at any later stage, how coul d there be a relaxation of these prescribed essential qualiﬁ cations. Their prayer, therefore, was that the select list must comprise of only such ca ndidates who hold the prescribed minimum eligibility qualiﬁ cations by the last date for receipt of the application under the advertisement. Such a challenge was laid through Writ Petition No. 34 of 2019, which was originally ﬁ led before the Tribunal as O.A. No. 5543 of 2017. 6. In respect of recruitment against the second advertisement for Post Code 556, challenge was laid by those who either held qu aliﬁ cations at variance from the one prescribed, or had certiﬁ cate(s) / diploma(s) from such institutes that were not considered recognized. Their chal lenge was premised on the relaxation granted earlier in connection with the exercise under the ﬁ rst advertisement for Post Code 447. Their case was that once relaxation to the eligibility conditions prescribed in the 2014 Rules was allowed qua the ﬁ rst advertisement, the recruitment to the sam e post, advertised as Post Code 556, under the same set of Rules, must be subject to same relaxation. These candidates, therefore, chal lenged rejection of their candidature and prayed that the merit-list be r e-drawn by treating their candidature as valid. 7. In respect of the third advertisement dated 21.0 9.2020, the challenge was conﬁ ned to 531 posts that were carried forward as unﬁ lled vacancies notiﬁ ed under the second advertisement for Post Code 556. In this category of cases, the claim was that vacant posts of JOA, advertised as Post Code 556, should not have been left unﬁ lled as eligible candidates were available had the beneﬁ t of the relaxation be en provided. They, therefore, claimed that those carry forward posts, now ad vertised as Post Code 817, be segregated and ﬁ lled as part of the second advertisement by taking into consideration those candidates who woul d be eligible by virtue of the relaxation. 829 Findings / Observations of the High Court in the im pugned judgment 8. The High Court found / held / observed: (i) The essential qualiﬁ cations prescribed in the 2014 Rules as “one year diploma in Computer Science / Computer Application / Information Technology from a recognized Universi ty / Institution” is ambiguous and creates confusion, ﬁ rstly, because expression “recognized University / Institution” is not deﬁ ned, and, secondly, diploma qualiﬁ cation may be held under diﬀ erent nomenclatures. The High Court held that though there could be no dispute regarding a recognized University but as regards the authority competent to recognize an institution to award a diploma, there is no clarity. Therefore, the decision to relax the essential qualiﬁ cations dated 21.08.2017 was within the powers of the State Government conferred by Rule 18 of the 2014 Rules. Hence, it was rightly applied on the recruitment exercise carried out under the ﬁ rst advertisement dated 13.02.2015. (ii) Computer Science / Information Technology are subjects of wide amplitude and are admissible to diﬀ ering nomenclatures and cannot be restricted to the one found in the 2014 Rules / Advertisement. Thus, in absence of any clarity as to the kind of curricula required to obtain the required diploma / certiﬁ cate to become eligible, the decision of the State Government dated 21.08.2017 cannot be faulted, particularly, when there is no clarity as to the authority competent to accord recognition. While holding so, the High Court took note of the essential qualiﬁ cations prescribed in the 2020 Rules for the post of JOA (IT), which were more speciﬁ c as regards the authority competent to recognize. (iii) Advent of computerization and wide use of information technology has caused a sense of urgency for appointment(s) on the posts advertised across various departments of the State Government. This is reﬂ ected by successive advertisements for the posts. In that scenario, to meet the exigency, if an exercise to constitute an equivalence committee was undertaken pursuant to a judicial order of the Tribunal dated 30.06.2017, which was not ANKITA THAKUR & ORS. v. THE H.P. STAFF SELECTION COMMISSION & ORS. [MANOJ MISRA, J.] assailed by any of the writ petitioners, departure, if any, from the 2014 Rules cannot be faulted. Otherwise also, where rules are ambiguous, and it may take time to amend the rules, relaxation and clarifications are permissible as part of admin istrative exigency. (iv) There is nothing on record to infer that actio n of the State Government / HPSSC was actuated by extraneous consideration(s) or lack of bona ﬁ de(s). (v) The petitioners could not substantiate that anyone or more of the selected persons obtained the requisite qualiﬁ cations after the cut-oﬀ date. Impugned Decision of the High Court 9. In light of the ﬁ ndings / observations noticed above, the High Court dismissed Writ Petition No. 34 of 2019 which questioned the relaxation order; and upheld the process of selection and appointment against Post Code 447. Consequent to the dismissal of Writ Petition No. 34 of 2019, other writ petitions, namely, numbered 2253, 2289, 2290, 2388, 2394 and 7681 of 2020, which were ﬁ led for consideration of candidates who beneﬁ ted from the relaxation order, were dismissed as infructuous. 10. Writ petitions seeking relaxation in the eligibility conditions for the second advertisement (i.e., for Post Code 556) in terms provided for Post Code 447, were disposed of by directing that same relaxation be accorded for Post Code 556 as accorded for Post Code 447. In consequence, the High Court, in paragraphs 33 and 34 of the impugned judgment, directed: “33. Thus, the HPSSC is directed to re-cast the merit list for JOA 556 by including all categories of candidate as was done for JOA 447 on the basis of decision of Government dated 21.8.2017/ 18.9.2017 and further made applicable to JOA 556 vide communication 19.3.2018 except the candidates with higher qualiﬁ cation, who have already been held ineligible vide judgment dated 29.8.2019 of a Division Bench of this Court in CWP 161/2019. These selections for JOA 556 shall be made by taking into account the entire number of vacancies advertised for JOA 556 and the decision of the Government/HPSSC to close the selection procedure for JOA 556 is set aside and quashed. 831 34. Since the Common R&P Rules stand amended by 2020 Rules and the cause of persistent confusion for the time being appe ars to have been removed, as a necessary consequence selection for JOA 817 shall take place in accordance with 2020 Rules, however , the selection process shall not include the selection for posts which were left over from advertised posts of JOA 556 as the said posts have already been directed to be ﬁ lled through selection process of JOA 556.” 11. The resultant eﬀ ect of the above directions wo uld be that for recruitment against Post Code 556, candidates who, but for the relaxation dated 21.08.2017, were ineligible under the 2014 Ru les, were to be treated eligible and the merit list redrawn accordi ngly. Not only that, 531 posts of Post Code 556, which remained unﬁ lled, and, therefore, carried forward, and re-advertised on 21.09.2020, w ere to be segregated and ﬁ lled in terms of the direction above. In consequence, the number of posts advertised under the advertisement dated 21.0 9.2020 were to get reduced to that extent. However, as per the decisio n of the High Court, the candidates who professed holding qualiﬁ cations higher than the one prescribed were not to get any beneﬁ t as that issue already stood concluded vide judgment and order of the High Court dated 29.08.2 019, passed in Writ Petition No.161 of 2019, against which SLP (C) No.45 of 2021 was dismissed by this Court. Appeals Before This Court 12. (A) Arising out of SLP (C) No. 730 of 2022: This appeal questions the direction given in paragraph 33 of the impugned judgment. The appellants herein claim that they hold the requisite eligibility qualiﬁ cations prescribed by the 2014 R ules as well as the advertisement; they participated in the recruitment exercise for Post Code 556 and were placed in the merit-list; if candidates who were otherwise not eligible, but for the relaxation, are permitted to be considered, as directed in paragraph 33, the merit-list might have to be re-drawn and they m ay be ousted and replaced by those who, otherwise, were ineligible . These appellants have, therefore, prayed that the direction given by t he High Court in paragraph 33 of the impugned judgment be quashed and the earlier merit-list be not disturbed. ANKITA THAKUR & ORS. v. THE H.P. STAFF SELECTION COMMISSION & ORS. [MANOJ MISRA, J.] In this appeal, intervention / impleadment application(s) (i.e., I.A . Nos. 30862 of 2022; 26627 of 2022; and 73507 of 2022) have been ﬁ led by such candidates who were to beneﬁ t by the direction given in paragraph 33 of the impugned judgment. Another I.A. No 14524 of 2022 has been ﬁ led for impleading parties who had put in appearance through various intervention applications. Yet another I.A. No. 5062 of 2022 has been ﬁ led to bring on record: (a) a copy of letter issued by the Director of Higher Education, Govt. of Himachal Pradesh; (b) copy of the order of the High Court dated 29.08.2019 passed in Writ Petition Nos. 629 of 2019 and 161 of 2019; and (c) copy of the order dated 15.11.2021 passed by this Court in SLP (C) No. 45 of 2021 whereby Special Leave Petition preferred against the order of the High Court dated 29.08.2019 was dismissed. (B) Arising out of SLP (C) No. 729 of 2022: This appeal is also at the instance of those candidates who were considered and selected under the second advertisement for Post Code 556. They are, therefore, similarly aggrieved as the appellants of appeal arising out of SLP (C) No. 730 of 2022. In this appeal, too, an Impleadment Application No. 15047 of 2022 has been ﬁ led to bring on record parties who had put i n appearance through various intervention applications. (C) Arising out of SLP (C) No. 4321 of 2022: This appeal is by the writ petitioners of Writ Petition No. 34 of 2019 before the High Court. They are aggrieved by dismissal of their writ petition which sought: (a) quashing of the relaxation order dated 21.08.2017; and (b) a direction upon HPSSC to prepare the merit-lis t by including only those candidates who possess essential minimum qualiﬁ cations as speciﬁ ed in advertisement No. 30 of 2015 dated 13.02.2015. 833 Appellants herein are those candidates who failed to ﬁ nd their name in the select list prepared after the recruitment exercis e under the ﬁ rst advertisement for Post Code 447. In this appeal, I.A. No. 56457 of 2022 has been ﬁ led for bringing on record copy of the order dated 29 th March 2022 passed by the High Court in Writ Petition No. 113 of 2019 whereby the said writ petition was dismissed by a Single Bench of the High Court. Another I.A. No. 100627 of 2022 has been ﬁ led by a bunch of candidates who claim to have possessed qualiﬁ cations higher than the one speciﬁ ed in the Advertisement for Post Code 447. According to them, they hold Degree instead of Diploma and Degree being higher than Dipl oma, they were eligible. Yet another I.A. No. 188852 of 2022 has been ﬁ led to bring on record: (i) An RTI query report dated 02.07.2022. This is to the eﬀ ect that the relaxation order dated 21.08.2017 was not published in any Newspaper, E-Gazette or Oﬃ cial website; and (ii) A chart containing reasons as to why some of t he selected candidates were not qualiﬁ ed/ eligible for consideration against Post Code 447. Note: It is not clear whether this chart was ever placed before the High Court. (D) Arising out of SLP (C) No. 9977 of 2022: This appeal is by those candidates who participated under the second advertisement and got selected for appointment against Post Code 556. They are aggrieved by the direction contained in paragraph 33 of the impugned judgment. They apprehend that if the merit-list is re-drawn by includin g those who were otherwise ineligible under the 2014 Rules, they may go out of the merit-list. Their case is thus identical to the appellants in the appeal arising out of SLP (C) No. 730 of 2022. In this appeal, I.A. No. 77624 of 2022 has been ﬁ led to bring on record an application ﬁ led by one of the candidates under the advertisement for Post Code 556 to initiate contempt proceeding against the State f or non- compliance of the directions contained in the impugned judgment of the High Court. ANKITA THAKUR & ORS. v. THE H.P. STAFF SELECTION COMMISSION & ORS. [MANOJ MISRA, J.] (E) Arising out of SLP (C) No. 17676 of 2022: This appeal is by those who have applied under the third advertisement dated 21.09.2020 qua Code 817. Their grievance is that if the direction given in paragraphs 33 and 34 of impugned judgment is implemented, the number of posts advertised would get reduced thereby aﬀ ecting their chances of selection. Interim Orders passed during pendency of the proceedings: 13. In Special Leave Petition (C) No. 730 of 2022, on 12.01.2022, an interim order was passed putting in abeyance the direction contained in paragraph 33 of the impugned judgment. Likewise, in SLP (C) No. 17676 of 2022, an interim order was passed on 30.09.2022 putting in abeyance the direction contained in paragraph 34 of the impugned judgment. 14. We have heard learned counsel for the appellants; the learned counsel for the respondents / Intervenors and the Advocate General of the State of Himachal Pradesh, who appeared for the State and the Commission. Submissions on behalf of Appellants 15. Ms. Kaveeta Wadia, who led the arguments on behalf of the appellants in appeals arising out of SLP (C) Nos. 730 of 2022, 729 of 2022 and 9977 of 2022, inter alia , submitted: (i) The ﬁ rst and second advertisements (i.e., dated 13.02.2015 and 18.10.2016) were issued during currency of the 2014 Rules. T he 2014 Rules prescribed eligibility qualiﬁ cations in unequivocal terms and the advertisements speciﬁ ed the same qualiﬁ cations with a clear stipulation that candidates applying thereunder must hold the requisite qualiﬁ cations by the last date for receipt of the application. The last date for receipt of application under the ﬁ rst advertisement was 31.10.2015, and under the second advertisement it was 17.11.201 6. Both the advertisements did not reserve the power to relax the eligibility criteria at any later stage. In these circumstances, the relaxation accord ed on 21.08.2017, after the last date for receipt of the applications, was illegal. (ii) The High Court erred in observing that relaxation was necessitated because, (a) there could be confusion as to the true import of the 835 expression “recognized University / Institution” and (b) there could be institutions conducting the same course under a diﬀ erent nomenclature. These observations of the High Court were in ignorance of the statutory regime in place since 1986 vide Himachal Pradesh Takniki Shiksha Board Act, 1986 11 and the Regulations framed thereunder, set out below: Section 2 of the 1986 Act provides: “ In this Act, unless the context otherwise requires,- (a) “aﬃ liated institution” means an institution aﬃ liated to the Board in respect of any course or courses of study in accordance with the provisions of the Act or regulations made thereunder; (b ) “Board” means the Himachal Pradesh Takniki Shiksha Board established under section 3…………….; (e) “certiﬁ cate” means the certiﬁ cate awarded by the Board to a person for successfully completing in an aﬃ liated institution such courses of study as may from time to time be prescribed by regulations …………; (g) “diploma” means a diploma awarded by the Board to a person for successfully completing in an aﬃ liated institution such courses of study as may from time to time be prescribed by regulations ……….; (i) “industrial training” means training imparted t o students in Industrial Training Institutions; (j) “institution” means institution imparting techn ical education and industrial training ………..; (s) “technical education” means the education imparted to students in the technical institutions;” Section 12 of the 1986 Act speciﬁ es functions and duties of the Board as follows: 11 1986 Act ANKITA THAKUR & ORS. v. THE H.P. STAFF SELECTION COMMISSION & ORS. [MANOJ MISRA, J.] “12. Functions and duties of the Board.- Subject to the provisions of this Act and the rules and regulations made thereunder, the functions and duties of the Board shall be- (i) to aﬃ liate institutions and prescribe courses of study and instructions leading to examinations conducted by it; (ii) to prescribe standards for buildings and equipment of aﬃ liated institutions; (iii) to prescribe educational qualiﬁ cations and ot her standards for the members of the staﬀ of the aﬃ liate d institutions; (iv) to prescribe educational qualiﬁ cations for admission of students to aﬃ liated institutions; (v) to prescribe the manner of admission of students to aﬃ liated institutions; (vi) to admit candidates to examinations conducted by it; (vii) to conduct examinations for promotion from lower to higher classes and also for awarding certiﬁ cates and diplomas; (viii) to publish results of examinations conducted by it; (ix) to grant certiﬁ cates and diplomas to students who have completed the prescribed course of study in an aﬃ liated institution and have passed the examinations conducted by it; (x) to co-operate with other authorities and bodies in such manner and for such purposes as may be necessary for giving eﬀ ect to the provisions of this Act; (xi) to advise the State Government on co-ordinated development of technical education and training regarding the same; (xii) to do all other such acts and things as may be necessary for the proper discharge of its functions under this Act or the rules or regulations made thereunder; and 837 (xiii) to carry out such other duties as may be imposed upon it under this Act or the rules or regulations made thereunder” Section 13 of the 1986 Act confers power on the Board in following terms: “13. Power of the Board.- (1) The Board shall, subject to the provisions of this Act and the rules made thereunder, have all such powers as may be necessary for the discharge of its functions and the performance of its duties under this Act and rules or regulations made thereunder. (2) In particular and without prejudice to the generality of the foregoing powers, the Board shall have the powers- (i ) after giving the candidate a reasonable opportunity of being heard, to cancel an examination, or withhold the result of an examination, of a candidate, or to disallow him from appearing at any future examination who is found by it to be guilty of- (a) using unfair means in the examination; (b) making any incorrect statement or suppressing material information or fact in the application form for admission to the institution or to the examination; (c) fraud or impersonation at the examination; (d) securing admission to the examination in contravention of the rules governing admission to such examination; or (e) any act of gross indiscipline in the course of the examination; ( ii) to deduct marks at any examination of any candidate found by it to be guilty of any act of indiscipline in the course of the examination; ANKITA THAKUR & ORS. v. THE H.P. STAFF SELECTION COMMISSION & ORS. [MANOJ MISRA, J.] (iii) to cancel the result of an examination of any candidate found by it to be guilty of all or any of the acts mentioned in sub-clauses (a) to (d) of clause (i) or for any bona ﬁ de error of the Board in the declaration of the result: Provided that the result of an examination shall not be cancelled on the ground of a bona ﬁ de error of the Board, after the expiry of 90 days from the date of announcement of the result of the examination; (iv) to prescribe fees for the examinations conducted by it and provide for the manner of their realisation; (v) to refuse aﬃ liation of an institution- ( a) which does not fulﬁ l, or is not in a position to fulﬁ l or does not come up to the standards for staﬀ , instruction, equipment or buildings laid down by the Board in this behalf, or (b) which does not or is not willing to abide by the conditions of aﬃ liation laid down by the Board in this behalf; ( vi) after giving the institution concerned a reasonable opportunity of being heard, to withdraw aﬃ liation of an institution not able to adhere to or make a provision for standards of staﬀ , instruction equipment or buildings laid down by the Board, or on its failure to observe the conditions of aﬃ liation to the satisfaction of the Board; (vii) to call for reports from the heads of aﬃ lia ted institutions in respect of any act done in contravention of the rules or regulations or decisions, instructions or directions of the Board, and take suitable action for the enforcement of the rules or regulations or decisions, instructions or directions of the Board, in such manner as may be prescribed by the regulations; 839 (viii) to inspect an aﬃ liated institution for the purpose of ensuring due observance of the prescribed courses of study and to ensure that facilities for instructions are duly provided and availed of; and (ix) to ﬁ x the maximum number of students that may be admitted to courses of study in an aﬃ liated institution. (3) The decision of the Board in all matters mentioned in sub- sections (1) and (2) shall be ﬁ nal.” Section 15 of the 1986 Act confers power on the Board to make regulations in following terms: “15. Power to make regulations:- (1) The Board may, for carrying out the purposes of this Act, make regulations consistent with the provisions of this Act and the rules framed thereunder and submit the same for approval of the State Government. The State Government may approve, modify or vary the regulations. The regulations, as approved by the State Government, shall be published in the Oﬃ cial Gazette and shall take eﬀ ect from the date of publication, and where a date has been speciﬁ ed from that date. (2) Without prejudice to the generality of the foregoing powers, the regulations may provide for- (a) the appointment, constitution, powers and duties of the committees and sub-committees constituted under this Act; (b) the manner and conditions of conferment of certiﬁ cate and diplomas; (c) the conditions for aﬃ liations of institution; (d) the courses of study to be prescribed for certiﬁ cate and diploma examinations; (e) the conditions under which candidates shall be admitted to the examination of the Board and shall be eligible for certiﬁ cates and diplomas; ANKITA THAKUR & ORS. v. THE H.P. STAFF SELECTION COMMISSION & ORS. [MANOJ MISRA, J.] (f) the fees for admission to the examinations of the Board and the manner of their realisation; (g) the conduct of examinations; (h) the appointment of examiners, moderators, collators, scrutinizers, tabulators, centre inspectors, superintendents of centres and invigilators, and their duties and powers in relation to the Board’s examinations, and the rates of their remuneration; (i) standards for buildings, including land appurte nant thereto, the equipment and apparatus necessary for institutions seeking aﬃ liation; (j) publication of results of examinations conducted by the Board; (k) the minimum educational and other qualiﬁ cations for admission of students to an aﬃ liated institution; (l) admission of students to aﬃ liated institutions; (m) the inspection of aﬃ liated institutions with a view to ensuring due observance of the prescribed courses of study and that facilities for instruction are duly provided and availed of; (n) the conditions under which a candidate may be disallowed admission to the examination of the Board in courses of study in an aﬃ liated institution; (o) withholding or cancelling results of an examination conducted by the Board and cancelling an examination conducted by it in respect of any candidate; (p) the circumstances under which affiliation of an institution may be withdrawn or refused; (q) inspection of a centre; and (r) any other matter which under this Act or rules made thereunder is to be or may be prescribed by regulations.” 841 Section 31 of the Act provides that ﬁ rst Regulations shall be made by the State. It provides: “31. First regulations of the Board.- (1) The First Regulations shall be made by the Stat e Government and they shall be deemed to have been made by the Board and continue in force until altered or modiﬁ ed by the Board. (2) The regulations made under sub-section (1) shall not take eﬀ ect until these have been published in the Oﬃ cial Gazette” In exercise of its statutory powers, the Takniki Board framed and notiﬁ ed Himachal Takniki Shiksha Board, Regulations 1993 12 under Section 15 read with Section 31 of the 1986 Act. Regulation 6(5) of the 1993 Regulations provided for conferment of Certiﬁ cates and Diplomas while Regulation 7 prescribed the conditions for aﬃ liation of the Institution. Further, Regulation 6 (5) provided that: “All diplomas and certiﬁ cates issued by the Board, NCVT and SCVT will stand automatically recognized by the Government of Himachal Pradesh for the purposes of employment in Subordinate services.” By placing reliance on the aforesaid statutory provisions and regulations, it was urged that the State was under an obligation t o bring the statutory regime to the notice of the High Court so as to remove doubts, if any, about the true import of the phrase “recognized institution” as it occurs in the 2014 Rules. ( iii ) In addition to the above, the State had notiﬁ ed Himachal Pradesh Private Educational Institutions (Regulatory Commission) Act, 2010 13 which established a Regulatory Commission and prescribed a regulatory framework for ensuring appro priate standard of admission, teaching, examination, resea rch and 12 1993 Regulations 13 2010 Act ANKITA THAKUR & ORS. v. THE H.P. STAFF SELECTION COMMISSION & ORS. [MANOJ MISRA, J.] protection of interest of students in Private Educa tional Institutions and for matters connected therewith or incidental thereto. (iv) Further, vide letter dated 23.05.2017, the Director of Higher Education provided a list of Institutes recognised by the Takniki Board. Even RTI noting records that vide letter dated 14.06.2017 the Director, Technical Education had provided details of all such institutes. Thus, there was neither any ambiguity in the 2014 Rules nor any doubt about the recognised institutes. Hence, no relaxation / clariﬁ cation was required. (v) The relaxation order dated 21.08.2017 was a colourab le exercise of powers to push forward a list of unreco gnised institutes having support of powerful lobbies. (vi) Impugned relaxation being after the last date ﬁ xed for receipt of the application is in teeth of the law settled by this Court i n Rakesh Kumar Sharma vs. State (NCT of Delhi) & Ors 14 . That apart, in absence of power reserved in the advertisement to relax the eligibility criteria, and there being no publicity of such relaxation, relaxation of the eligibility criteria falls foul of the law laid down by this Court in Bedanga Talukdar vs. Saifudaullah Khan 15 and Sanjay K. Dixit v. State of U.P. 16 (vii) Further, a candidate by self-declaration cann ot certify his own qualiﬁ cation as equivalent to the one speciﬁ ed. There have to be norms and guidelines for declaring a qualiﬁ cation equivalent to meet the eligibility criteria prescribed by the Rules for the post. However, the Committee approved the candidature / selection of candidates on the basis of self-certiﬁ cation which is impermissible in light of this Court’s decision in Mukul Kumar Tyagi vs. State of U.P. 17 14 (2013) 11 SCC 58 15 (2011) 12 SCC 85 16 (2019) 17 SCC 373 17 (2020) 4 SCC 86 843 (viii) As relaxation of eligibility criteria was illegal, extension of the same relaxation for Post Code 556 is also il legal. Otherwise also, executive instructions cannot override statutory rules framed under Article 309 of the Constitution of India. In this regard, reliance was placed on decisions of this Court in Krishna Rai v. Banaras Hindu University 18 ; Union of India vs Somasundaram Viswanath & Ors. 19 ; and P.D. Aggarwal & Ors. vs. State of U.P. & Ors. 20 . 16. Ms. Vandana Sehgal, who appeared on behalf of appellants in the appeal arising out of SLP (C) No.17676 of 2022, submitted that the t hird advertisement for Post Code 817 was published on 21.09.2020. By that time Himachal Pradesh, Department of Personnel, Junior Oﬃ ce Assistant (Information Technology), Class III (Non-Gazetted) Ministerial Services, Common Recruitment and Promotion Rules, 2020 21 were already notiﬁ ed. Thus, recruitment had to be as per the 2020 Rules. The third advertisement also applied the same 2020 Rules; therefore, recruitment could not have been in terms of the 2014 Rules. Thus, relaxation under the 2014 Rules could not have been used to ﬁ ll up posts advertised under the third advertisement. Therefore, High Court’s direction to segregate the posts that were carried forward from the second advertisement and hold recruitment under the old Rules was completely misconceived. More so, when employer cannot be forced to ﬁ ll all notiﬁ ed vacancies as per old Rules. Submissions on behalf of respondents 17. Mr. Vivek Narayan Sharma, who appeared for respondent no.7 in SLP (C) No.730, respondent no.5 in SLP (C) No.729 of 2022 and applicants in I.A. No.26627 of 2022 ﬁ led in SLP (C) No.730 of 2022 and I.A. No.73507 of 2022 ﬁ led in SLP (C) No. 730 of 2022, submitted: (i) The High Court justiﬁ ably upheld clariﬁ cations dated 21.08.2017 and 19.03.2018; 18 (2022) 8 SCC 713 19 (1989) 1 SCC 175 20 (1987) 3 SCC 622 21 the 2020 Rules ANKITA THAKUR & ORS. v. THE H.P. STAFF SELECTION COMMISSION & ORS. [MANOJ MISRA, J.] (ii) The respondent(s) are eligible in terms of the aforesaid clariﬁ cations; (iii) The argument that to be considered recognised, an institution must have recognition from the Takniki Board has been raised for the ﬁ rst time in rejoinder before this Court, therefore, it cannot be entertained at this stage; (iv) The appointments under Post Code 556 were subj ect to the outcome of the litigation, therefore the appointees have no right to challenge the decision of the High Court; (v) The prescribed essential qualiﬁ cation is in fact a non-essential qualiﬁ cation, inasmuch as selection is made after undergoing rigorous selection process such as written test, typing test and interview. Therefore, Diploma is not an essential qualiﬁ cation; (vi) The term recognized institution occurring in the 2014 Rules is ambiguous and, therefore, required clariﬁ cation. In this regard, reliance was placed on a decision of this Court in Dhananjay Malik vs. State of Uttaranchal 22 ; (vii) Rule 18 conferred power on the State to relax the Rules. Consultation with Public Service Commission was not required because under the proviso to Article 320 (3) of the Constitution, “The Himachal Pradesh Public Service Commission (Exempti on from Consultation) Regulations, 1973” were framed and, as per Regulation 3 thereof, there is exemption from consultation in respect of services and posts speciﬁ ed in the Schedule. Class III posts, other than those speciﬁ ed, are exempt from consultation. Thus, relaxation without consultation with the Commission was legally permissible. In this regard, reliance was placed on a decision of this Court in the case of State of Gujarat vs. Arvindkumar T. Tiwari 23 . 18. On behalf of the State of Himachal Pradesh, H.P. Staﬀ Selection Commission and the Govt. of Himachal Pradesh, Mr. Anup Kumar Rattan, Advocate General, assisted by Abhinav Mukerji, submitted: 22 (2008) 4 SCC 171 23 (2012) 9 SCC 545 845 (i) Under the ﬁ rst advertisement for Post Code 447 there were 1421 vacancies. In respect of second advertisement for Post Code 556 there were 1156 vacancies. Both advertisements were, inter alia, for the post(s) of JOA, Class-III (Non-Gazetted) Ministerial Service, a nd were to be ﬁ lled as per the 2014 Rules. A large number of candidates applied under any one of the following categories: (a) Those who held qualiﬁ cation higher than the one prescribed; (b) Those who held qualiﬁ cations from institute(s) regarding which there was ambiguity as to how they could be treated as recognised; (c) Those who held qualiﬁ cations equivalent to the prescribed qualiﬁ cations; and (d) Those who held prescribed qualiﬁ cations from recognized institutes. Initially, candidature of all those who did not fulﬁ l the eligibility criteria as per 2014 Rules was rejected. However, several of t hem approached the Tribunal. On 30.06.2017, in O.A. No.2830 of 2017, the Tribunal passed an interim order that candidates holding one year diploma, though with a diﬀ erent nomenclature than the one prescribed, may be considered subject to decision of the State Government on its equivalence with the one prescribed. Pursuant thereto, on 21.08.2017 the State Government issued a clariﬁ cation that all candidates having one year diploma in computer or higher education in Computer Science / Application / IT from any private institution may also be considered for selection. (ii) The letter dated 21.08.2017 is clariﬁ catory in nature and within the scope of powers conferred by Rule 18 of the 2014 Rules, and was necessitated on account of ambiguity in the 2014 Rules. The clariﬁ cation widens the zone of consideration by including those who were successful in the written examination and typing test, therefore, it causes no prejudice to the interest of the State. (iii) The clariﬁ cation was approved by the State cabinet in its meeting held on 18.09.2017, which had the power to relax the Rules under Rule ANKITA THAKUR & ORS. v. THE H.P. STAFF SELECTION COMMISSION & ORS. [MANOJ MISRA, J.] 18 of the 2014 Rules. Such relaxation could be without consultation of the Commission in light of Regulation 3 of the 1973 Regulations. Moreover, the clariﬁ cation was issued in public interest considering the urgency to ﬁ ll the vacant posts. (iv) The State Govt. vide letter dated 19.03.2018 directed the Commission to implement the clariﬁ cation dated 21.08.2017 in respect of Post Code 556 also, as both (i.e., Post Code 447 and Post Code 556) required same set of qualiﬁ cations and were to be ﬁ lled under the 2014 Rules. (v) The State has power to prescribe qualiﬁ cations for the recruitment. Essential qualiﬁ cations for appointment to a post are for the employer to prescribe and the question of equivalence falls outside the domain of judicial review. In this regard, reliance was placed on a decision of this Court in Maharashtra Public Service Commission vs. Sandeep Sudhakarrao Lavhekar 24 . (vi) The State can even withdraw an advertisement and proceed afresh under new set of Rules. In this regard, reliance was placed on a decision of this Court in State of M.P. vs. Raghuveer Singh Yadav 25 (vii) Recruitment under Post Code 447 is complete. If the appointments are set aside, it would create administrative chaos. In the recruitment process under Post Code 556, out of 1156 posts that were advertised, 626 posts have been ﬁ lled and 530 posts remain unﬁ lled. 19. On behalf of Intervenors (I.A. No.100627 of 2022), who claim to possess qualiﬁ cations higher than prescribed by the Rules, Mr. Tarun Gupta argued that they possess qualiﬁ cations which can be con sidered higher than the prescribed qualiﬁ cations and, therefore, they ought to have been considered as eligible even though qua them no speciﬁ c clariﬁ cation was issued. Further, if persons having diploma from private / unrecognised institutes were considered eligible, there could be no dispute rega rding eligibility of those who possess higher qualiﬁ cation. The learned counsel 24 (2019) 6 SCC 362 25 (1994) 6 SCC 151 847 sought to distinguish the decision of this Court in Zahoor Ahmad Rather & Ors. vs. Sheikh Imtiyaz Ahmad & Ors. 26 relied by the High Court to reject their claim. 20. Mr. Dinesh Singh, who appeared for one of the selected candidates for Post Code 447, submitted that there exists no authority to re cognise a private institute in the State. Considering this, the State Government considered registered institutes as recognised institutes. Moreover, selected candidates were appointed after undergoing tests and they have been working since long and have also been regularised. Therefore, their appoi ntment must not be disturbed. Discussion and Analysis 21. We have considered the rival submissions and have perused the record. 22. The facts as regards which there exist no dispute are: (a) that recruitment under the ﬁ rst two advertisements relating to Post Code 447 and 556 were to be made when the 2014 Rules were in vogue and validity of which has not been questioned by any of the parties; (b) that the ﬁ rst two advertisements prescribed same eligibility qualiﬁ cations as prescribed by the 2014 Rules; (c) that the advertisements speciﬁ cally stipulated that candidates must hold prescribed essential qualiﬁ cations by the last date for receipt of application or by the date speciﬁ ed therein; (d) that relaxation / clarification order was issue d without consultation with the Himachal Pradesh Public Service Commission; and (e) that when the relaxation order or clariﬁ catory letter, as the case may be, was issued, the last date for receipt of application under the two advertisements had passed. 26 (2019) 2 SCC 404 ANKITA THAKUR & ORS. v. THE H.P. STAFF SELECTION COMMISSION & ORS. [MANOJ MISRA, J.] Issues: 23. In the aforesaid factual backdrop, the crucial issues that arise for our consideration are: (i) Whether relaxation in the essential eligibility qualiﬁ cations could be made post the last date ﬁ xed for receipt of application from the candidates? (ii) Whether the essential eligibility qualiﬁ cations speciﬁ ed in the 2014 Rules were ambiguous as to warrant clariﬁ cation or relaxation with a view to declare certain other qualiﬁ cations as equivalent to the one speciﬁ ed in the said Rules? (iii) Whether there was a statutory regime in place to accord recognition to an Institution? If yes, whether the clariﬁ catory letter / relaxation order is in ignorance of such statutory regime and is, therefore, invalid? (iv) Whether, in absence of prior consultation with the Commission, the relaxation / clarificatory order co uld be considered in conformity with the provisions of Rule 18 of the 2014 Rules? (v) Whether in view of requirement for a written and computer typing test prior to selection, possession of one year diploma in Computer Science / Computer Application / Informa tion Technology from a recognised University / Institutio n by a candidate was not an essential eligibility qualiﬁ cation? (vi) Whether candidates holding qualiﬁ cations other than the one prescribed by the 2014 Rules or the advertisement, though allegedly higher, could be considered eligible? (vii) Whether the State (i.e., the employer) could be forced t o ﬁ ll all vacancies advertised; and whether it could be restrained from carrying it forward for ﬁ lling it as per the amended / new Rules. Issue No.(i) 24. It is well settled that eligibility criteria / conditions, unless provided otherwise in the extant rules or the advertisement, must be fulﬁ lled by 849 the candidate by the last date for receipt of applications sp eciﬁ ed in the advertisement [ See: Rakesh Kumar Sharma (supra)]. 25. In Bedanga Talukdar (supra), this Court observed: “29. …………… In our opinion, it is too well settled to need any further reiteration that all appointments to public oﬃ ce have to be made in conformity with Article 14 of the Constitution of India. In other words, there must be no arbitrariness resulting from any undue favour being shown to any candidate. Therefore, the selection process has to be conducted strictly in accordance with the stipulated selection procedure. Consequently, when a particular schedule is mentioned in an advertisement, the same has to be scrupulously maintained. There cannot be any relaxation in the terms and conditions of the advert isement unless such a power is speciﬁ cally reserved. Such a power could be reserved in the relevant statutory rules. Even if power of relaxation is provided in the rules, it must still be mentioned in the advertisement. In the absence of such power in the rules, it could still be provided in the advertisement. However, the power of relaxation, if exercised, has to be given due publicity. This would be necessary to ensure that those candidates who become eligible due to the relaxation, are aﬀ orded an equal opportunity to apply and compete. Relaxation of any condition in advertisement without due publication would be contrary to the mandate of equality contained in Articles 14 and 16 of the Constitution of India. 30. A perusal of the advertisement in this case will clearly show that there was no power of relaxation. In our opinion, the High Court committed an error in directing that the condition with regard to the submission of the disability certiﬁ cate either along with the application form or before appearing in the preliminary examination could be relaxed in the case of Respondent 1. Such a course would not be permissible as it would violate the mandate of Articles 14 and 16 of the Constitution of India. 32. ………. It is settled law that there can be no relaxation in the terms and conditions contained in the advertisement unless the ANKITA THAKUR & ORS. v. THE H.P. STAFF SELECTION COMMISSION & ORS. [MANOJ MISRA, J.] power of relaxation is duly reserved in the relevant rules and / or in the advertisement. Even if there is a power of relaxation in the rules, the same would still have to be speciﬁ cally indicated in the advertisement. …………..” (Emphasis supplied) 26. The above decision has been followed in Sanjay K. Dixit (supra). Thus, the law is settled that if the extant Rules provide for the power to relax the eligibility criteria, the same could be exercised only if such power is reserved in the advertisement. And when this power is exercised, there must be wide publicity of its exercise so that persons who are likely to beneﬁ t by exercise of such power may get opportunity to apply and compete. 27. In the instant case, it is not shown that the advertisement reserved the power to relax the essential eligibility qualiﬁ cations speciﬁ ed in the advertisement at any later stage. Rather, the advertisement is speciﬁ c that eligibility criteria must be fulﬁ lled by an aspiring candidate by the last date ﬁ xed for receipt of the application. It is not demonstrated that after the decision to relax the eligibility criteria was taken, the same was widely publicised, and the last date to apply under the advertisement was extended to enable persons beneﬁ ted by such relaxation to apply and compete. In these circumstances, in our view, the power to relax the eligibility criteria, even if it existed, was not exercised in consonance with the set tled legal principles and it violated the constitutional mandate enshrined in Articles 14 and 16 of the Constitution. Issue No.(i) is decided in the terms above. Issue Nos.(ii), (iii) and (iv): 28. As issue nos. (ii), (iii) and (iv) are interrelated we propose to deal with them simultaneously. First, we shall consider whether there is any ambiguity in the essential eligibility qualiﬁ cations speciﬁ ed in the 2014 Rules. 29. As per Rule 7 of the 2014 Rules, “one year diploma in Computer Science / Computer Application / Information Technology from a recognized University / Institution” was one of the essential qualiﬁ cations which an aspiring candidate was required to possess to be eligib le for the post. According to the High Court, it was ambiguous becau se “recognized Institution” was not deﬁ ned. Therefore, to provide clarity as to what was 851 a recognized Institution, under orders of the Tribunal, t he relaxation / clariﬁ cation order dated 21.08.2017 was issued. According to the appellants, this exercise was not acceptable because there existed a statutory regime in the 2010 Act and the Regulations framed thereunder empowering a Takniki Board to accord recognition / aﬃ liation to institutes awarding diploma / certiﬁ cate on successful completion of such courses. It is their case that the State did not place the statutory regime before the High Court and, therefore, the High Court overlooked the same while accepting the plea of ambiguity in the 2014 Rules. 30 . On perusal of the record we could not ﬁ nd that the clariﬁ catory / relaxation order providing equivalence to certain courses was founded on empirical data that courses identical, or by and large identical, to the one speciﬁ ed in the extant Rules were being conducted by vari ous recognized institutions or Universities under diﬀ erent nomenclatures. In fact, what the clariﬁ catory or relaxation order does is that it proceeds to impliedly recognize certain courses / diploma obtained fr om a private Institution, like from a society registered under Societies Registration Act or Rashtriya Saksharta Mission IT program / Skill Development Program, without examining whether under the extant statutory regime they could be considered recognized. 31. In our view, if there existed a statutory procedure for granting recognition, an Institution cannot be considered recognized dehors that procedure. No doubt, as held by a Constitution Bench of this Court in Mohammad Shujat Ali & Ors. vs. Union of India & Ors. 27 , issue of equivalence is a technical issue and where the decision of the Government is based on the recommendation of an expert body, the Court should not lightly disturb its decision unless it is based on extraneous or irrelevant considerations or actuated by mala ﬁ des or is irra tional and perverse or manifestly wrong. But this is not a case of mere treating degre es or certiﬁ cates obtained from a recognized Institution / University as equivalent to the one speciﬁ ed, rather it is of granting recognition to certain courses conducted by private institutes, whether recognized or not as per the extant statutory regime. This, in our view, amounts to changing the eligibili ty 27 (1975) 3 SCC 76 ANKITA THAKUR & ORS. v. THE H.P. STAFF SELECTION COMMISSION & ORS. [MANOJ MISRA, J.] criteria midway because the extant Rules and the adv ertisement both stipulated that the diploma / speciﬁ ed course had to be from a recognized Institution / University. Even assuming that there had been no stat utory procedure prescribed to accord recognition, such relaxation in the eligibility qualiﬁ cation ought to have been widely publicized, and opportunity should have been aﬀ orded to those who were left out, so that they could apply and compete, as held by this Court in Bank of India vs. Aarya K. Babu 28 . 32. In Aarya K. Babu (supra), one of the issues was, whether a particular educational qualiﬁ cation made eligible after issue of recruitment notiﬁ cation could have been considered for the purposes of recruitment. Answering the question, this Court held that if there is any change i n the qualiﬁ cation criteria after the notiﬁ cation is issued but before the completion of the selection process, and the employer/ recruiting agency seeks to adopt the change, it will be incumbent on the employer to issue a corrigendum incorporating the changes to the notiﬁ cation and invite application from those qualiﬁ ed as per the changed criteria and consider the same along with the applications received in response to the initial notiﬁ cation. We respectfully agree with the above view as it is in consonance with the consti tutional mandate. 33. In this view of the matter, even if we assume that the State had power to relax the eligibility criteria, the same could not ha ve been done mid-stream without giving wide publicity of such change, and opportunity to similarly situated candidates to apply and compete with others. 34. As there appears nothing on record to indicate that wide publicity of such relaxation in the speciﬁ ed qualiﬁ cations was made, and opportunity was aﬀ orded to similarly situated candidates to apply and compete, in our view, considering the manner in which the relaxation was accorded, the same falls foul of the constitutional mandate enshrined in Articles 14 and 16 of the Constitution. Issue Nos.(ii), (iii) and (iv) are answered in the above terms. Issue No.(v): 35. A plain reading of the 2014 Rules and the advertisement would indicate that possession of one year diploma in Computer Science/ Computer 28 (2019) 8 SCC 587 853 Application/ Information Technology from a recognis ed University/ Institution is an essential qualiﬁ cation which must be posses sed by a candidate desirous of appointment on the post concerned. The High Court has also not treated the same as a non-essential qualiﬁ cation. In this view of the matter, we reject the argument that requirement to hold one year diploma in the speciﬁ ed courses was not an essential qualiﬁ cation. Issue No.(v) is decided accordingly. Issue No.(vi): 36 . The 2014 Rules as well as the advertisement in cle ar terms prescribed the essential qualiﬁ cation as follows: “(i) 10 +2 from a recognised Board of School Educat ion/ University. (ii) One year Diploma in Computer Science/ Computer Application/ Information Technology from a recognis ed University/ Institution. (iii) Computer typing speed of 30 words per minute in Engli sh or 25 words per minute in Hindi OR (i) 10 +2 from a recognised Board of School Educati on/ University. (ii) “O” or “A” level Diploma from National Institu te of Electronics & Information Technology (NIELET) (iii) Computer typing speed of 30 words per minute in Engli sh or 25 words per minute in Hindi” 37 . Neither the 2014 Rules nor the advertisement recognises any other, or higher qualiﬁ cation, meeting the eligibility criteria speciﬁ ed therein. In a somewhat similar situation, in Zahoor Ahmad Rather (supra), this Court held: “26. ………….. Absent such a rule, it would not be permissible to draw an inference that a higher qualiﬁ cation necessarily presupposes the acquisition of another, albeit lower , qualiﬁ cation. The prescription of ANKITA THAKUR & ORS. v. THE H.P. STAFF SELECTION COMMISSION & ORS. [MANOJ MISRA, J.] qualiﬁ cations for a post is a matter of recruitment policy. The State as the employer is entitled to prescribe the qualiﬁ cations as a condition of eligibility. It is no part of the role or function of judicial review to expand upon the ambit of the prescribed qualiﬁ cations. Similarly, equivalence of a qualiﬁ cation is not a matter which can be determined in exercise of the power of judicial review. Whether a p articular qualiﬁ cation should or should not be regarded as equivalent is a matter for the State, as the recruiting authority, to determine. The decision in Jyoti K.K. [Jyoti K.K. v. Kerala Public Service Commission, (2010) 15 SCC 596 : (2013) 3 SCC (L&S) 664] turned on a speciﬁ c statutory rule under which the holding of a higher qualiﬁ cation could presuppose the acquisition of a lower qualiﬁ cation. The absence of such a rule in the present case makes a crucial diﬀ erence to the ultimate outcome. ….. 27. While prescribing the qualiﬁ cations for a post, the State, as employer, may legitimately bear in mind several features including the nature of the job, the aptitudes requisite for the eﬃ cient discharge of duties, the functionality of a qualiﬁ cation and the content of the course of studies which leads up to the acquisition of a qualiﬁ cation. The State is entrusted with the authority to assess the needs of its public services. Exigencies of administration, it is trite law, fall within the domain of administrative decision-making. The State as a public employer may well take into account social perspectives that require the creation of job opportunities across the societal structure. All these are essentially matters of policy. Judicial review must tread warily. That is why the decision in Jyoti K.K. [Jyoti K.K. v. Kerala Public Service Commission, (2010) 15 SCC 596 : (2013) 3 SCC (L&S) 664] must be understood in the context of a speciﬁ c statutory rule under which the holding of a higher qualiﬁ cation which presupposes the acquisition of a lower qualiﬁ cation was considered to be suﬃ cient for the post. It was in the context of speciﬁ c rule that the decision in Jyoti K.K. [Jyoti K.K. v. Kerala Public Service Commission, (2010) 15 SCC 596 : (2013) 3 SCC (L&S) 664] turned.” (Emphasis supplied) 38 . In light of the law above, since we ﬁ nd that there exists no provision in the extant Rules or the advertisement to treat any other qualiﬁ ca tion 855 as higher or equivalent to the one speciﬁ ed therein, th e claim of such candidates, who could not demonstrate that they held the prescribed essential qualiﬁ cations, is liable to be rejected and has rightly been rejected by the High Court as well. Issue No.(vi) is decided accordingly. Issue No. (vii): 39 . It is well settled that an employer cannot be forced to ﬁ ll all the existing vacancies under the old Rules. The employer may, in a given situation, withdraw an advertisement and issue a fr esh advertisement in conformity with the new or amended Rules [ See: State of M.P. vs. Raghuveer Singh Yadav (supra)]. Even a candidate included in the merit list has no indefeasible right to appointment even if the vacancy e xists (See: Shankarsan Dash vs. Union of India 29 ) . Issue No.(vii) is decided accordingly. Conclusion / Directions: 40 . For all the reasons above, the direction(s) contained in paragraphs 33 and 34 of the impugned judgment of the High Court setting aside the closure of the selection process for Post Code 556 and to re-cast the merit list as well as ﬁ ll up remaining posts of Post Code 556, with the aid of relaxation/ clariﬁ cation dated 21.08.2017/ 18.09.2017 read with communication dated 19.03.2018, after segregating it from those advertised as Post Code 817, are set aside. Though the directions contained therein were stayed by this Court, yet, as a matter of abundant caution, we direct that appointment(s), if any, made by taking aid of those directions, would stand set aside by this order. 41 . As regards those candidates who were appointed under the ﬁ rst advertisement qua Post Code 447 not pursuant to the impugned judgment, but by the State itself, based on the relaxation accorded vide order dated 21.08.2017, the contention of the appellants in the appeal arising out of SLP (C) No.4321 of 2022 is, that out of 1421 posts advertised, 809 candidates appointed did not hold qualiﬁ cations as per the 2014 Rules; they got selected only because of the illegal relaxation order. Further, by now at least 73 posts under Post Code 447 have fallen vacant, either due to resignation by the appointed candidates or otherwise, while there are only 29 SLP petitioners 29 (1991) 3 SCC 47 ANKITA THAKUR & ORS. v. THE H.P. STAFF SELECTION COMMISSION & ORS. [MANOJ MISRA, J.] waiting for their chances. It is thus prayed on behalf of these appellants that they be considered for appointment. 42 . Before we proceed to notice the response to the above contentions, it may be noted that, though in SLP (C) No. 4321 of 2022 all such candidates whose qualiﬁ cation has been challenged are impleaded, as per oﬃ ce report dated 23.03.2023, notices were not served on them directly, rather it was served through Respondent no.1 (State of H.P.). Further, from the record it appears that O.A. No.5543 of 2017, out of which SLP (C) No.4321 of 2022 arises, was ﬁ led by initially impleading only two selected candidates as would be clear from the date chart submitted by the SLP p etitioners. Otherwise also, in O.A. No.5543 of 2017, it has not been speciﬁ cally disclosed as to how those candidates were ineligible. Therefore, even if we assume that all those selected candidates were impleaded later, it is not clear, ﬁ rstly, whether they were served with notice of the proceedings before the High Court or the Tribunal, and, secondly, whether any foundation was laid before the High Court or Tribunal to individually question their eligibility qualiﬁ cation. 43 . In the above backdrop, on behalf of the State– respon dents it is contended that such appointments were made under the ﬁ rst advertisement more than ﬁ ve to six years ago. Such appointees have not only passed the written test but have also cleared computer typing test . They are Class III (Non-gazetted) employees who, by virtue of long exp erience, have not only gained adequate proﬁ ciency in their job b ut are now placed in various departments of the State. Therefore, if thei r appointment is disturbed, it would paralyse the Govt. set up. Moreov er, several of such candidates might have crossed maximum age limit for p articipating in a fresh recruitment exercise. It is, therefore, prayed by the respondents that their appointment(s) should not be disturbed in exercise of discretionary powers of this Court. 44 . Upon consideration of the rival submissions and having regard to: (a) that appointments were made after taking written and computer typing test of the candidates; (b) that there is no speciﬁ c allegation of nepotism or mala ﬁ des in making such appointments; (c) that nature of the post does not require a high degree of technical skill; (d) the length of period during which the appointments have continued; and (e) that there is no clarity w hether 857 such appointees were duly served with notice of the proceeding before the High Court, or whether a speciﬁ c challenge was laid to their eligibility individually, we are of the considered view that even if such appointments were made taking aid of the relaxation order dated 21.08.2017, it would not be in the interest of justice to disturb those appointments made under the ﬁ rst advertisement (Post Code 447). As regards adjustment of the appellants (i.e., petitioners in SLP (C) No. 4321 of 2022) against vacancies that might have arisen subsequent to appointment against the advertised vacanc ies is concerned, in our view, it would not be appropriate as those vaca ncies would have to be ﬁ lled after a fresh advertisement and in accordance with the extant Rules. 45 . In light of the aforesaid discussion and conclusion, we direct / order as under: (i) The relaxation / clariﬁ catory order dated 21.08.2017, as approved by the State cabinet on 18.09.2017, being after the last date ﬁ xed by the advertisements dated 13.02.2015 (i.e., for Post Code 447) and dated 18.10.2016 (for Post Code 556) for receipt of appli cations from candidates, is not legally sustainable qua those posts (i.e., Post Codes 447 and 556), particularly, when no opportunity was aﬀ orded to similarly placed persons, who might have been left out, to appl y and compete with those candidates who, though not eligible as per the terms of the advertisement, had applied thereunder; (ii) The direction(s) contained in paragraphs 33 and 34 of the impugned judgment of the High Court setting aside the closure of the selection process for Post Code 556 and to re-cast the merit list as well as ﬁ ll up remaining posts of Post Code 556, with the aid of relaxa tion/ clariﬁ cation dated 21.08.2017/ 18.09.2017 read with communication dated 19.03.2018, after segregating it from those advertised as Post Code 817, are set aside. In consequence, (a) the merit list prepar ed under the second advertisement for Post Code 556 shall not be re- drawn by including such candidates who, though not eligible, became eligible pursuant to relaxation / clariﬁ catory order dated 21.08.2017 / 18.09.2017 read with communication dated 19.03.2018; and (b) there shall be no segregation of seats advertised under the third advertisement dated 21.09.2020 for Post Code 817. Thus, recruitment for Post Code ANKITA THAKUR & ORS. v. THE H.P. STAFF SELECTION COMMISSION & ORS. [MANOJ MISRA, J.] 817 shall be strictly in accordance with the extant Rules (i.e., 202 0 Rules), as notiﬁ ed. (iii) The appointments already made under the ﬁ rst advertisement (for Post Code 447) shall not be disturbed merely be cause some of the appointees may have gained eligibility based on the order of relaxation / clariﬁ cation dated 21.08.2017, which was approved by the State cabinet. 46 . All the appeals are disposed of in the aforesaid terms. Pending application(s), if any, are also disposed of. There is no order as to costs.