Judgment

HIDAYATULLAH, J.:

This judgment will dispose of Civil Appeal No. 743 of 1963 and Civil Appeals Nos. 553 and 554 of 1962. The appellants in Civil Appeal No. 743 of 1963 are owners of lands in village Virk Kalan, Tehsil and District Bhatinda. The appellants in the other appeals are owners of lands in villages Sewana and Mehnd of Tehsil Hansi in District Hissar. Proceedings for the consolidation of holdings are going on in these villages under the East Punjab Holdings (Conservation and Prevention of Fragmentation) Act 1948 (Act 30 of 1948). This Act was amended on many occasions but we are concerned with it as amended by the East Punjab Holdings (Consolidation and Prevention of Fragmentation) (2nd Amendment and Validation) Act 1960 (27 of 1960). In the present consolidation proceedings portions of lands from those commonly owned by the appellants as proprietors, have been reserved for the village Panchayat and given over to it for diverse purposes, and other portions have been reserved either for non-proprietors or for the common purposes of the villages. Without going into too much detail it is sufficient to indicate that in village Virk Kalan 270 kanals and 13 marlas have been given to the village Panchayat for management and realisation of income, although the ownership is still shown in village papers as Shamlat Deh in the names of the proprietors and 10 kanals and 3 marlas have been reserved for abadi to be distributed among persons entitled thereto and 3 kanals and 7 marlas have-been reserved for manure pits. Similarly, in village Sewana 400 kanals and 4 marlas have been set apart for the village Panchayat for extension of the abadi and to enable grants of 8 marlas of land to be made to each family of non-proprietors and 16 kanals have been reserved for a primary school and some more for a phirni. Similarly, in village Mehnda, land has been reserved for the village Panchayat, a school, tanning ground, hospital, cremation ground and for non-proprietors. The proprietors were not paid compensation for the lands and it is the taking away and allotment of these lands which are the subject of challenge in these appeals on grounds about to be stated. Before, however, we do so we will set down some of the legislative measures which have relevance and mention some of the cases decided under them one of which led to the second amendment Act.

2. The Consolidation Act 50 of 1948 was passed to provide for the compulsory consolidation of agricultural holdings and for preventing the fragmentation of agricultural holdings. S. 18 of the Act provided that notwithstanding anything contained in any law for the time being in force,it shall be lawful for any Consolidation Officer to direct:inter alia

"(a) that any land specifically- assigned for any common purpose shall cease to be so assigned and to assign any other land in its place;

(b) xx xx xx xx xx xx

(c) that if in any area under consolidation no land is reserved for any common purpose including extension of the village abadi, or if the land so reserved is inadequate, to assign other land for such purpose."

Section 46 of the Consolidation Act conferred powers on the State Government to make rules for carrying out the purpose of the Act and in particular to provide for

"(e) the manner in which the area is to be reserved under Section 18 and the manner in which it is to be dealt with and also the manner in which the village abadi is to be given to proprietors and non-proprietors (including scheduled castes, Sikh backward classes, artisans and labourers) on payment of compensation or otherwise :"

On March 3., 1956 the Punjab Government, by a notification, added R.16 to the Rules for reservation of the Abadi for the proprietors as well as the non-proprietors and it read as follows :

"The area to be reserved for the common purpose of extension of abadi for proprietors and non-proprietores u/S.18(c) of the Act shall be reserved after scrutinizing the demand of proprietors desirous of buildi