Back
2006 Supreme(MP) 78
2006 (1) JLJ 303
(SUPREME COURT)
S.B. Sinha and P.P. Naolekar, JJ.
K.K. Bhalla v. State of M.P. and others
Civil Appeals No. 477 and 478 of 2006 : against the order of
M.P. High Court passed in WP. No. 4570 of 1996;
Decided on 13.1.2006.
Shivsagar Tiwari and Amalpushp Shroti for appellant;
Ms. Vibha Datta Makhija for State; Vivek K. Tankha and
Anoop G. Chaudari with Satya N. Prajapati and B.S. Banthia for respondents.
Headnote:(1) Nagar Tatha Gram NiveshAdhiniyam, 1973 (M.P.) -- Ss. 2 (e), 2 (g), 2 (i), 49. 52, 53, 58,73,85 and 87 -- M.P. Nagar Tatha Grarn Nivesh (Vikasit Bhoomiyon, Grihon, Bhavanon Tatha Anya Samrachanon Ka Vyayan) Niyam, 1975 -- Rr. 3, 4, 5, 19 and 20 -- M.P. Town Improvement Trust Act, 1960 -- Ss. 71 (2) -- land vested in and developed by Town and Country Development Authority -- Scheme for Utilization of such land prepared and also sactioned by State Government -- only Development Authority can dispose of such land -- State Government can oversee the function of Authority but cannot itself dispose of the land - such disposal is without jurisdiction.
The lands in question indisputably come within the master plan made in terms of the Madhya Pradesh Nagar Tatha Gram Nivesh Adhiniyam, 1973 (for short, "the 1973 Act") in relation to the town of Jabalpur, brought about by the Jabalpur Development Authority (for short "JDA"), a statutory authority constituted thereunder.....Jabalpur Improvement Trust was created for the purpose of carrying out the provisions thereof in the town of Jabalpur wherefor it was entitled to acquire lands belonging to private pm1ies and obtain such land from the State and others by way of agreement, sale, etc. There appears to be some dispute as to whether the lands in question are acquired lands or nazul lands belonging to the State of Madhya Pradesh. However, it is not in dispute that the town planning scheme framed by the said trust was approved by the State and by a notification dated 20th September, 1974, the lands stood vested in the trust in terms of sub-section (2) of section 71 of the 1960 Act.
The lands in question are situate in the commercial area carved out of the said master plan. The Authority indisputably was entitled to allot plots in favour of the applicants only in terms of the rules and regulations framed thereunder, Allegedly, pursuant to or in furtherance of a purported policy decision adopted by it, the State of Madhya Pradesh allotted land to Shri Bishambhar Dayal Agrawal, proprietor of Dainik Bhaskar, a newspaper inter alia published from Jabalpur for establishment of an industry, i.e., for printing and publication of a newspaper known as Dainik Bhaskar.
The said newspaper is published from nine States. Similarly, an application having been made by YMCA, which is said to be a charitable organization, 8,000 sq. ft. of land was allotted to it. [Paras 4 & 5
Held: The State, in terms of the provisions of the 1973 Act and the 1975 Rules, is a statutory authority. Its jurisdiction to oversee functions of the authorities of the Board as also power to issue directions are circumscribed by the provisions contained in sections 72 and 73 of the 1973 Act.
Concededly, the lands in question were either acquired lands or nazul lands. It also stands admitted that in terms of the provisions of sub-section (2) of section 71 of the 1960 Act even the nazul lands stand admittedly vested in the Authority and having regard to the provisions contained in section 87(l)(c)(iii) all assets and liability of the Town Improvement Trust shall belong to and be deemed to be the assets and liabilities of the Town and Country Development Authority established in place of such Town Improvement Trust.
The power of disposal of lands, buildings and other developmental works indisputably vests in the Town and Country Development Authority, i.e., the JDA. We have, however, not been informed as to whether any regulation has been framed by the Authority for regulating the procedures for disposal of developed lands, houses, buildings and other structures. [Paras 21 to 23
The JDA, therefore, only had requisite authority to initiate the proceedings for grant of lease of land on concessional terms wherefor only the previous approval of the State was required to be taken. The State, except grant of previous approval to the proposal of the JDA and ultimate grant of lease of its lend on concessional terms, has no other role to play. Disposal of the Authority land is, thus, within the domain of the JDA, subject only to the previous approval of the State Government. [Paras 26
(2) Words and Phrases -- ‘Public Utility‘ -- private business -- rendering beneficial service to all persons -- may be public utility -- publication of newspaper -- does not come within ‘public utility‘ though it may be true that such industry has great role to play in spreading political education. 1990 (Supp.) SCC 394 distinguished. (1972) 2 SCC 788 and (1985) 1 SCC 641 relied on. [Paras 43 to 45
(3) Administrative Law -- public utility service -- allotment of land -if preference is to be given to any such service, policy decision is required to be adopted if permissible under the statute. 2005 (8) SCALE 80 relied on. [Paras 46 & 47
(4) Constitution of India -- Art. 162 --land kept for commercial purpose under Statute -- State, in exercise of executive powers, cannot change the purpose to industrial activity. (2004) 8 SCC 733 relied on. [Para 49
(5) Nagar Tatha Gram Nivesh Adhiniyam, 1973 (M.P.) -- Ss. 73 and 3 -- power of State Government under S. 73 to issue directions to the officers appended under S.3--is confined to only to matters of policy -- it cannot issue general directions -- directions dehors the provisions of the Act are void. [Paras 51 & 52
(6) Revenue Book Circulars (M.P.) -- Four-l -- direction issued by Revenue Department n decision not taken under relevant enactment -direction not e\‘en issued by concerned Ministry--power is extremely limited. 1992 Supp. (2) SCC 343, (1996) 8 SCC 506 and 2005 (10) SCALE 286 relied on. [Para 53
(7) Constitution of India -- Art. 14 -- allotment of land illegal--positive concept carried with Art. 14 would have no application. (1999) 3 SCC 494 and (2000) 9 SCC 94 relied on. [Para 54
(8) Law --malice --may either be on fact or in law -- passing an order for unauthorised purpose -- constitutes malice in law. (2005) 6 SCC 776 and JT 2005 (9) SC 422 relied on. [Para 57
(9) Constitution of India -- Arts. 226 and 32--illegal allotment of public land brought to the notice of Court--it may exercise power of judicial review suo moto (1987) 1 SCC 222, (2003) 8 SCC 567 and (2003) 7 SCC 546 relied on. [Para 63
(l0) Constitution of India -- Art. 14 -- equality clause -- cannot be invoked for perpertrating an illegality. [Para 63
¼1½ uxj rFkk xzke fuos‘k vf/kfu;e] 1973 ¼e-ç-½& &/kkjk ¼³½] 2 ¼N½] 2 ¼>½] 49] 52] 53] 58] 73] 85 rFkk 87& &e-ç- uxj rFkk xzke fuos‘k ¼fodflr Hkwfe;ksa] x`gksa] Hkouksa rFkk vU; lajpukvksa dk O;pu½ fuxe] 1975& &fu- 3] 4] 5] 19 rFkk 20& &e-ç- uxj lq/kkj U;kl vf/kfu;e] 1960& &/kkjk 71¼2½& &Hkwfe] uxj rFkk xzke fodkl çkf/kdj.k esa fufgr rFkk mlds fodflr& &,slh Hkwfe ds mi;ksx dh ;kstuk rS;kj dh xbZ vkSj jkT; ljdkj }kjk eatwj Hkh& &,slh Hkwfe dk O;pu dsoy fodkl çkf/kdj.k }kjk fd;k tk ldrk gS& &jkT ljdkj] çkf/kdj.k ds ÑR; dk fujh{k.k dj ldrh gS] Hkwfe dk O;;u ugha dj ldrh& &,slk O;;u vf/kdkfjrk jfgr gSA
ç‘uxr Hkwfe;k¡ fufoZokn :i ls e/; çns‘k uxj rFkk xzke fuos‘k vf/kfu;e] 1973 ¼la{ksi ds fy,^^1973 dk vf/kfu;e**½ ds v/khu xfBr dkuwuh çkf/kdj.k tcyiqj fodkl çkf/kdj.k ¼la{ksi ds fy, ^^tfoçk**½ }kjk mDr vf/kfu;e ds fuca/kukuqlkj fojfpr tcyiqj uxj ds laca/k esa ço`Ùk ekLVj Iyku ds varxZr vkrh gSaA----tcyiqj uxj lq/kkj U;kl dk l`tu mlds mica/k tcyiqj uxj esa dk;kZfUor fd, tkus ds fy, fd;k x;k Fkk ftlds fy, og çkbosV i{kdkjksa dh Hkwfe vftZr djus vkSj ,slh Hkwfe jkT; rFkk vU; ls djkj] foØ; vkfn }kjk vfHkçkIr djus dk gdnkj FkkA bl ckjs esa dqN fookn çrhr gksrk gS fd ç‘uxr Hkwfe;k¡] vftZr Hkwfe;k¡ gSa vFkok e/; çns‘k jkT; ds vkf/kiR; dh utwy Hkwfe;k¡ gSA rFkkfi] ;g fooknxzLr ugha gS fd mDr U;kl fojfpr uxj ;kstuk Ldhe jkT; }kjk vuqeksfnr dj nh xbZ Fkh vkSj vf/klwpuk fnukad 20 flracj 1974 }kjk ;g Hkwfe;k¡ 1960 ds vf/kfu;e dh /kkjk 71 dh mi/kkjk ¼2½ ds fuca/kukuqlkj U;kl esa fufgr gks pqdh FkhA ;g Hkwfe;k¡ mDr ekLVj Iyku }kjk fuf‘pr fd, x, okf.kfT;d {ks= esa vofLFkr gSA çkf/kdj.k] fufoZokn :i ls] ekLVj Iyku ds v/khu fojfpr fu;eksa vkSj fofu;eksa ds fuca/kukuqlkj gh vkosndksa ds i{k esa Hkw&[kaM vkcafVr djus dk gdnkj FkkA vfHkdfFkr :i ls] Lo;a }kjk viuk, x, vk‘kf;r uhfr&fu.kZ ds vuqlj.k esa vFkok mls vxzlj djus ds fy, e/; çns‘k jkT; us] vU; LFkkuksa ds lkFk&lkFk tcyiqj ls çdkf‘kr nSfud HkkLdj lekpkj i= ds Lokeh Jh fo‘kaHkj n;ky vxzoky dks ,d m|ksx vFkkZr nSfud HkkLdj uked lekpkj i= ds eqnz.k vkSj çdk‘ku ds fy, Hkwfe vkcafVr dhA mDr lekpkj i= ukS jkT;ksa ls çdkf‘kr gksrk gSA blh çdkj] ;ax esu fØf‘p;u ,lksfl,‘ku }kjk tks ,d iwrZ laxBu cuk;k tkrk gS] vkosnu fd, tkus ij 8]000 oxZQqV Hkwfe mls vkcafVr dh xbZ FkhA ¼iSjk 4 ,oa 5½
vfHkfu/kkZfjr % 1973 ds vf/kfu;e vkSj 1975 ds fu;eksa ds mica/kksa ds fuca/kukuqlkj] jkT; ,d dkuwuh çkf/kdj.k gSA eaMy ds çkf/kdkfj;ksa ds ÑR;ksa ds fujh{k.k dh vf/kdkfjrk rFkk lkFk gh funs‘k tkjh djus dh ‘kfDr 1973 ds vf/kfu;e dh /kkjk 72 rFkk 73 esa lhekc) fd, x, gSaA
LohÑr :i ls] ç‘uxr Hkwfe;k¡ ;k rks vftZr Hkwfe;k¡ Fkha vFkok utwy Hkwfe;k¡A ;g Hkh LohÑr gSa fd 1960 ds vf/kfu;e dh /kkjk 71 dh mi/kkjk ¼2½ ds mica/kksa ds fuca/kukuqlkj utwy Hkwfe;k¡ Hkh LohÑrr% çkf/kdj.k esa fufgr gSa vkSj /kkjk 87 ¼1½ ¼x½ ¼rhu½ ds mica/kksa dks /;ku esa j[krs gq, uxj lq/kkj U;kl dh leLr vfLr;k¡ rFkk nkf;Ro] ,sls uxj lq/kkj U;kl ds LFkku ij LFkkfir uxj rFkk xzke fodkl çkf/kdj.k ds gksaxs vkSj mldh vfLr;k¡ rFkk nkf;Ro le>s tk,¡xsA
Hkwfe;k¡] Hkou vkSj vU; fodkl&dkks± ds O;;u dh ‘kfDr fufoZokn :i ls uxj rFkk xzke fuos‘k çkf/kdj.k vFkkZr tfoçk esa fufgr gS rFkkfi] gesa voxr ugha djk;k x;k gS fd fodflr Hkwfe;k¡] Hkou] lfUuekZ.k rFkk vU; lajpukvksa ds O;;u ds fy, çfØ;k fofu;fer djus ds fy, çkf/kdj.k }kjk dksbZ fofu;er fojfpr fd, x, gSaA ¼iSjk 21 ls 23½
vr% fj;k;rh fuca/kuksa ij Hkwfe dk iV~Vk çnku djus gsrq dk;Zokgh çkjaHk djus ds fy, dsoy tfoçk dks gh vko‘;d çkf/kdkj çkIr Fkk ftlds fy, jkT; dk iwoZ&vuqeksnu çkIr fd;k tkuk visf{kr FkkA tfoçk ds çLrko vkSj var esa viuh Hkwfe fj;k;rh fuca/kuksa ij iV~Vs ds çnk; dks iwoZ&vuqeksnu çnku fd, tkus ds vfrfjDr jkT; }kjk vU; fdlh Hkwfedk dk fuokZg ugha fd;k tkuk FkkA ¼iSjk 26½
¼2½ ‘‘kCn rFkk okD;& &^yksdksi;ksfxrk*& &çkbosV dkjckj& &lHkh O;fDr;ksa dks Qk;nkçn lsok nsus okyk& &yksdksiksxh gks ldrk gS& &lekpkji= dk çdk‘ku& &yksdksiksxh ds varxZr ugha vkrk] Hkys gh ;g lR; gks ldrk gS fd jktuhfrd f‘k{kk ds çlkj esa ,sls m|ksx dh egRoiw.kZ Hkwfedk gSA 1990 ¼lIyh-½ ,l lh lh 394 çHksfnrA
¼3½ ç‘kklfud fof/k& &yksdksiksxh lsok& &Hkwfe dk vkcaVu& &;fn ,slh fdlh lsok dks vf/keku fn;k tkuk gks] dkuwu ds v/khu vuqKs; uhfr& &fu.kZ viuk;k tkuk vko‘;d gSA 2005 ¼8½ Ldsy 80 voyafcrA ¼iSjk 46 ,oa 47½
¼4½ Hkkjr dk lafo/kku& &vuq- 162& &dkuwu ds v/khu Hkwfe okf.kfT;d ç;kstu ds fy, j[kh xbZ& &viuh ç‘kklfud ‘kfDr;ksa dk ç;ksx dj jkT; vkS|ksfxd xfrfof/k ds ç;kstu ds fy, ifjofrZr ugha dj ldrkA ¼2004½ 8 ,l lh lh 733 voyafcrA ¼iSjk 49½
¼5½ uxj rFkk xzke fuos‘k vf/kfu;e] 1973 ¼e-ç-½& &/kkjk 73 rFkk 3& &/kkjk 3 ds v/khu fu;qDr vf/kdkfj;ksa dks /kkjk 73 ds v/khu funs‘k tkjh djus dh jkT; ljdkj dks ‘kfDr& &dsoy uhfrxr ekeyksa rd lhfer gS& &og lkekU; funs‘k tkjh ugha dj ldrh & &vf/kfu;e ds mica/kksa ls vlac) funs‘k ‘kwU; gSA ¼iSjk 51 ,oa 52½
¼6½ jktLo ifji= ¼e-ç-½& &pkj 1& &jktLo foHkkx }kjk tkjh funs‘k& &lqlaxr vf/kfu;fefr ds v/khu fofu‘p; ugha fd;k x;k& &funs‘k lacaf/kr ea=ky; }kjk Hkh tkjh ugha fd;k x;k& &‘kfDr vR;f/kd lhfer gSA 1992 lIyh- ¼2½ ,l lh lh 343] ¼1996½ 8 ,l lh lh 506 rFkk 2005 ¼10½ Ldsy 286 voyafcrA ¼iSjk 53½
¼7½ Hkkjr dk lafo/kku& &vuq-14& &Hkwfe dk vkcaVu voS/k& &vuq- 14 dh lqLi"V ladYiuk ykxw ugha gksxhA ¼1993½3 ,l lh lh 499 rFkk ¼2000½ 9 ,l lh lh 94 voyafcrA ¼iSjk 54½
¼8½ fof/k& &nqHkkZo& &rF ij vFkok fof/k esa gks ldrk gS& &vçkf/kÑr ç;kstu ds fy, vkns‘k ikfjr fd;k tkuk& &fof/k esa nqHkkZo xfBr gksrk gSA ¼2005½ 6 ,l lh lh 776 rFkk ts Vh 2005 ¼9½ ,l lh 422 voyafcrA ¼iSjk 57½
¼9½ Hkkjr dk lafo/kku& &vuq-226 rFkk 32& &yksd Hkwfe dk voS/k vkcaVu U;k;ky; ds vo/kku esa yk;k x;k& &og U;kf;d iqufoZyksdu dh ‘kfDr dk ç;ksx Loçsj.kk ls dj ldrk gSA ¼1987½1 ,l lh lh 222] ¼2003½ 8 ,l lh lh 567 rFkk ¼2003½ 7 ,l lh lh 546 voyafcrA ¼iSjk 63½
¼10½ Hkkjr dk lafo/kku& &vuq-14& &lekurk [kaM& &voS/krk dkfjr dh tkus ds fy, vkJ; ugha fy;k tk ldrkA ¼63½
Sinha, J. - 1. Leave granted in SLPs.
2. Both these appeals involving common questions of law and fact were taken up for hearing together and are being disposed of by this common judgment.
3. Two writ petitions in the nature of public interest litigations were filed by the appellant herein before the High Court questioning allotment of lands measuring 20,000 sq. ft. and 8,000 sq. ft. in favour of Shri Bishambhar Dayal Agrawal proprietor, Dainik Bhaskar newspaper, Jabalpur, and YMCA, private respondents herein, respectively, by the State of Madhya Pradesh.
Jabalpur Development Authority (JDA)
4. The lands in question indisputably come within the master plan made in terms of the Madhya Pradesh Nagar Tatha Gram Nivesh Adhiniyam, 1973 (for short, "the 1973 Act") in relation to the town of Jabalpur, brought " about by the Jabalpur Development Authority (for short "JDA"), a statutory authority constituted thereunder. Prior to coming into force of the 1973 Act, the Legislature of the State of Madhya Pradesh enacted the Madhya Pradesh Town Improvement Trusts Act, 1960 (for short, "the 1960 Act") in terms whereof Jabalpur Improvement Trust was created for the purpose of carrying out the provisions thereof in the town of Jabalpur wherefor it was entitled to acquire lands belonging to private parties and obtain such land from the State and others by way of agreement, sale etc. There appears to be some dispute as to whether the lands in question are acquired lands or nazul lands belonging to the State of Madhya Pradesh. However, it is not in dispute that the town planning scheme framed by the said trust was approved by the State and by a notification dated 20th September, 1974, the lands stood vested in the trust in terms of sub-section (2) of section 71 of the 1960 Act.
5. The lands in question are situate in the commercial area carved out of the said master plan. The Authority indisputably was entitled to allot plots in favour of the applicants only in terms of the rules and regulations framed thereunder. Allegedly, pursuant to or in furtherance of a purported policy decision adopted by it, the State of Madhya Pradesh allotted land to Shri Bishambhar Dayal Agrawal, proprietor of Dainik Bhaskar, a newspaper inter alia published from Jabalpur for establishment of an industry, i.e., for printing and publication of a newspaper known as Dainik Bhaskar. The said newspaper is published from nine States. Similarly, an application having been made by YMCA, which is said to be a charitable organization, 8,000 sq. ft. of land was allotted to it.
6. The appellant herein, in the writ petition filed before the High Court, inter alia pleaded that a proposal was made for construction of an auditorium and a cinema hall by the Authority with the cooperation of the M.P. Film Development Corporation wherefor foundation stone was also laid at the site which has since been allotted in favour of Shri Bishambhar Dayal Aggrawal.
7. Further contentions of the appellants before the High Court are as under:
7.1. Such allotment having been made on a pick and choose method without following the procedures laid down therefore and without issuing any advertisement, was illegal. Such allotment having moreover been made for industrial purpose, was in contravention of the master plan drawn in terms of the provisions of the 1973 Act as thereby change of purpose as regards user thereof has been effected. Even 50% rebate both in respect of the premium and ground rent was given in utter violation of the statutory provisions.
7.2. The contention of the respondent before the High Court, on the other hand, was that the said allotments were made in terms of a policy decision adopted by the State.
7.3. The High Court, by reason of the impugned judgments, dismissed the writ petitions filed by the appellants herein holding that the grants favour of the respondents were made for public purposes which the State was empowered to do in terms of rule 3 of the Madhya Pradesh Nagar Tatha Gra
