2004 Supreme(MP) 874

2005(1) JLJ 295
R.V. Raveendran, C.J. and Shantanu Kemkar, J.
Pranay Gupta v. State of M.P. and others
W.P. No. 3386 of 2004; Decided on 19.11.2004.

Headnote:(1) Panchayat Raj Evam Gram Swaraj Adhiniyam, 1993 (M.P.) -- S. 125(1), proviso -- change in the headquarters, area etc. of Gram Panchayat -- publication of proposal is mandatory and not directory.

       The Collectors of 48 districts in the State of Madhya Pradesh issued notifications dated 3.7.2004 under section 125 of the M.P. Panchayat Raj Evam Gram Swaraj Adhiniyam, 1993 (the Act, for short) proposing to (a) change the headquarters of Gram Panchayats; (b) alter the limits of Gram Panchayat area; (c) amalgamate two or more Gram Panchayat areas and form one Gram Panchayat area in their place; and (d) split a Gram Panchayat area and form two or more Gram Panchayats in its place, in their respective districts and inviting objections and suggestions in regard to the said proposals. The notifications stated that objections/suggestions received by 8.7.2004 in response to the notifications will be considered by the authorised authority on 9.7.2004. The said notifications dated 3.7.2004 were published in the M.P. State Gazette dated 9.7.2004. The said proposal notifications were followed by final notifications dated 12.7.2004 issued under section 125(1) of the Act (gazetted on 16.7.2004) in regard to each district, effecting change of headquarters and amalgamating/altering of Panchayat areas.

       The petitioner contends that the proposal notification dated 3.7.2004 fixing the last date for filing objections/suggestions as 8.7.2004, published in the State Gazette on 9.7.2004 is void ab initio being violative of the mandatory requirements of section 125 of the Act and rule 3 of the M.P. Panchayat (Alteration of Limits, Disestablishment or Change of Headquarters) Rules, 1994 (‘Alteration Rules‘, for short). [Paras 1 & 2

       Whether the requirement relating to publication of the proposals for change of headquarters/amalgamation and alteration of Panchayat areas under the proviso to section 125(1) of the Act, is mandatory or directory. [Para 6

       Held : The purpose of requiring publication of the proposals (relating to change of headquarters, alteration of limits of Gram Panchayats, amalgamation of two or more Gram Panchayats or splitting of Gram Panchayats) is to draw the attention of the residents of the area who are likely to be affected by the proposals, so that they can submit their suggestions or file their objections to the proposals, which on consideration may enable the authority concerned to take a proper decision in the matter, either by dropping the proposals or by proceeding in terms of the proposals. The delimitation changes made in exercise of power under section 125(1) of the Act will materially affect the residents of the area. Such changes as contemplated in section 125(1) are not to be made lightly or routinely either for political convenience or at the whims of the Executive. There should be proper application of mind and valid reasons for effecting such changes. Therefore, section 125 mandates that the proposals shall be published inviting suggestions and objections and that such objections shall be considered before making any changes. In the circumstances, the requirement relating to publication contained in the proviso to section 125(1) is mandatory and not directory. AIR 1961 SC 751, AIR 1965 SC 895, (2003) 6 SCC 401, 1991 Supp. (2) SCC 753 and (1996) 3 SCC 634 followed. [Para 15

       (2) Panchayat (Alteration of Limits, Disestablishment or Change of Headquarters) Rules, 1994 (M.P.) -- R. 3 -- mode of publication of proposal for change of area etc. of Gram Panchayat -- object is to make the residents of affected area aware of the proposed change -- three modes prescribed -- are directory and not mandatory.

       Whether the mode of publication prescribed under rule 3 of the Alteration Rules is mandatory or directory. [Para 6

       Held: The object and intention of publication is that residents of the villages or areas affected by the proposal should have notice of the same so that they ran file their objections and suggestions. The rule requires not merely publication in the M.P. Gazette, but also by affixture of such notification on the Notice Board of the Gram Panchayat and in one or two conspicuous places in the area affected by the proposal. this requirement, when viewed in contradistinction from the normal provision of publication only in the Gazette, shows that the rule making authority was conscious of the fact that the more effective way of notifying the villagers who are likely to be affected by such proposals, is by affixture in the Gram Panchayat Notice Board and other conspicuous places in the affected areas. In the circumstances, we are of the. view that the requirement in rule 3 relating to publication of the proposal in M.P. Gazette as one of the three modes of publication, is directory and not mandatory. AIR 1961 SC 751, AIR 1965 SC 895, (2003) 6 SCC 401, 1991 Supp. (2) SCC 753 and (1996) 3 SCC 634 followed. [Para 16

       (3) Constitution of India -- Art. 226 -- PIL -- by Advocate unaffected by non-publication or illegal publication of proposal for change in area, headquarters, etc. of Gram Panchayat -- three modes of publication provided -- challenge limited to irregularity in publication of proposal in Gazette -- publication by another mode neither rebutted by him, nor challenged by any resident of affected area -- consideration of question of substantial compliance of requirement relating to other modes of publication not called for.

       [Para 17

       (4) Panchayat Raj Evam Gram Swaraj Adhiniyam, 1993 (M.P.) -- S. 125(1), proviso -- proposal inviting suggestions/objections to change of headquarter, area etc. of Gram Panchayat -- requirements -- should be in clear terms -- should invite objections/suggestions from affected persons -- should specify date and authority before which or whom objections/suggestions are to be filed -- should be published well before last date. [Para 4

       (5) Practice -- notice or proposal required to be published in Gazette -- it should be published and made available well before date fixed for filing objections -- otherwise it will not be useful for any purpose.

       When a notice or proposal is required to be published ill the Gazette, it should be published and made available to the public well in time before the last date prescribed for filing the objections/suggestions so that the aggrieved persons for whose benefit it is intended have time to know about the proposals and consider whether the proposals are proper or not, legal or not, beneficial or not and file objections. For example, publishing a notification dated 3.7.2004 requiring objections to be filed by 8.7.2004 and publishing it on 9.7.2004 in Gazette is meaningless. A notification dated 3.7.2004 requiring objections to be filed by 8.7.2004 will be bad even if it is published in the Gazette on 7.7.2004. This is because, though technically publication in such a case will be before the last date, there will be no time for the notification being made available to the public, or for the affected persons to prepare the objections/suggestions and to file the same. 1991 Supp. (2) SCC 754 Editorial Note followed. [Para 19

       (6) Practice -- publication of notification through Gazette -- mere printing in Gazette not enough unless Gazette containing the same is made available to public. AIR 1968 SC 668 followed. [Para 4

       (7) Law -- requiring compliance -- the governed must be notified directly and reliably of the law with all changes and additions thereto -- it must be done by various processes -- law must be known. AIR 1987 SC 1059 followed. [Para 21

       ¼1½ iapk;r jkt ,oa xzke Lojkt vf/kfu;e] 1993 ¼-eiz-½ && /kkjk 125¼1½] ijarqd && xzke iapk;r ds eq[;ky;] {ks= vkfn esa ifjorZu && izLrko dk izdk‘ku vkKkid gS] funs‘kkRed ughaA

        e/; izns‘k jkT; esa 48 ftyksa ds dyDVjksa us vius&vius ftyks esa ¼d½ xzke iapk;rksa ds eq[;ky; cnyus( ¼[k½ xzke iapk;r {ks= dh lhek,¡ ifjofrZr djus( ¼x½ nks ;k vf/kd xzke ia;kpr {ks=ksa dks ,d djus rFkk muds LFkku ij ,d xzke iapk;r {ks= xfBr djus( vkSj ¼?k½ ,d xzke iapk;r {ks= foHkkftr djus rFkk mlds LFkku ij nks ;k vf/kd xzke iapk;rsa xfBr djus dk izLrko djrs gq, rFkk mDr izLrkoksaa ds laca/k esa vkifRrÙk;k¡ vkSj lq>ko vkeaf=r djrs gq, e-iz- iapk;r jkt ,oa xzke Lojkt vf/kfu;e] 1993 ¼la{ksi ds fy, *vf/kfu;e*½ dh /kkjk 125 ds v/khu vf/klwpuk,¡ fnukad 3-7-2004 tkjh dhA vf/klwpukvksa esa dgk x;k Fkk fd vf/klwpukvksa fnukad 8-7-2004 rd izkIr vkifRrÙk;ksa@lq>koksa ij izkf/kd`r izkf/kdkjh }kjk 9-7-2004 dks fopkj fd;k tk,xkA mDr vf/klwpuk,¡ fnukad 3-7-2004 e-iz- jkT; ds jkti= fnukad 9-7-2004 esa izdkf‘kr dh xbZA mDr izLrko vf/klwpukvksa ds i‘pkr~] eq[;ky;ksa esa cnyko vkSj ia;kpr {ks=ksa dk ,dhdj.k@ifjorZu djrs gq, izR;sd ftys ds laca/k esa vf/kfu;e dh /kkjk 125¼1½ ds v/khu ¼16-7-2004 dks jktif=r½ vafre lwpuk,¡ fnukad 12-7-2004 fudkyh xbZA

       ;kph dk ladFku gS fd jkT; ds jkti= esa 9-7-2004 dks izdkf‘kr] vkifRrÙk;k¡] lq>ko Qkby Qkby djus ds fy, vafre fnukad ds :i esa 8-7-2004 fu;r djus dh izLrko vf/klwpuk fnukad 3-7-2004 vf/kfu;e dh /kkjk 125 vkSj e-iz- iapk;r ¼lhekvksa dk ifjorZu] eq[;ky;ksa dk foLFkkiu ;k cnyk tkuk½ fu;e] 1994 ¼la{ksi ds fy, *ifjorZu fu;e*½ ds fu;e 3 dh vkKkid vis{kkvksa dh vfrØked gksus ds dkj.k izkjaHk ls gh ‘kwU; gSA ¿ iSjk 1 ,oa 2À

       vf/kfu;e dh /kkjk 125¼1½ ds ijarqd ds v/khu eq[;ky;ksa esa cnyko@iapk;r {ks=ksa ds ,dhdj.k vkSj ifjorZu ds fy, izLrkoksa ds izdk‘ku ls lacaf/kr vis{kk vkKkid gS ;k funs‘kkRed \ ¿ iSjk 6À

       vfHkfu/kkZfjr % ¼eq[;ky;ksa ds cnys tkus] xzke iapk;rksa dh lhekvksa esa ifjorZu] nks ;k vf/kd xzke iapk;rksa dk ,dhdj.k ;k xzke iapk;rksa ds foHkktu ls lacaf/kr½ izLrkoksa ds izdk‘ku gksus dh laHkkouk gS] /;ku vkd`"V djuk gS ftlls og izLrkoksa ij vius lq>ko ns ldsa ;k vkifRrÙk;k¡ Qkby dj ldsa ftu ij fopkj djus ij laca) izkf/kdkjh] izLrko lkeIr dj ds ;k izLrkoksa ds vuqlkj dk;Zokgh dj ds ekeys esa mfpr fofu‘p;u dj ldrk gSA vf/kfu;e dh /kkjk 125¼1½ ds v/khu ‘kfDr iz;qDr dj fd, x, ifjlheu ifjorZuksa ls ml {ks= ds fuoklh rkfRod :i ls izHkkfor gksaxsA /kkjk 125¼1½ esa ;Fkk vuq/;kr ifjorZu] jktuhfrd lqfo/kk ds fy, ;k dk;Zikfydk dh lud ij] ykijokgh ls ;k uSfefÙkd :i ls ugha fd, tkuk gksrsA ,sls ifjorZu djus ds fy, mfpr euksfu;ksx rFkk fof/kekU; dkj.k gksuk pkfg,A vr%] /kkjk 125 esa vkKkfir gS fd izLrko] lq>ko vkSj vkifRrÙk;k¡ vkeaf=r djrs gq, izdkf‘kr fd, tk,¡xs rFkk ;g fd dksbZ ifjorZu djus ls iwoZ ijarqd esa varfoZ"V] izdk‘ku laca/kh vis{kk vkKkid gS] funs‘kkRed ughaA , vkb vkj 1961 ,l lh 751] , vkb vkj 1965 ,l lh 895] ¼2003½ 6 ,l lh lh 401] 1991 lIyh- ¼2½ ,l lh l;h 753 rFkk ¼1996½ 3 ,l lh lh 634 vuqlfjrA ¿ iSjk 15À

       ¼2½ iapk;r ¼lhekvksa dk ifjorZu] eq[;ky;ksa dk foLFkkiu ;k cnyk tkuk½ fu;e- 1994 ¼e-iz-½ && fu- 3 && xzke iapk;r ds {ks= vkfn ds ifjorZu ds fy, izLrko ds izdk‘ku dk <ax && mn~ns‘; gS] izHkkfor {ks= ds fuokfl;ksa dks izLrkfor ifjorZu dk Kku djuk & rhu <ax fofgr && funs‘kkRed gSa] vkKkid ughaA ifjorZu fu;eksa ds fu;e 3 ds v/khu fofgr izdk‘ku dk <ax vkKkid gS ;k funs‘kkRed \ ¿ iSjk 6À

       vfHkfu/kkZfjr % izdk‘ku dk mn~ns‘; vkSj iz;kstu ;g gS fd izLrko ls izHkkfor xzkeksa ;k {ks=ksa ds fuokfl;ksa dks mldh lwpuk gksuk pkfg, ftlls og viuh vkifRrÙk;k¡ vkSj lq>ko Qkby dj lsaA bl fu;e esa e-iz- jkti=\ esa izdk‘ku gh ugha vfirq xzke iapk;r ds lwpuk Qyd ij rFkk izLrko ls izHkkfor {ks= esa ,d ;k nks lgtn`‘; LFkkuksa ij fpidk dj izdk‘ku Hkh visf{kr gSA bl vis{kk ls] tc mls dsoy jkti= esa izdk‘ku esa lkekU; mica/k ds fojks/k esa ns[kk tk,] nf‘kZr gksrk gS fd fu;e cukus okys izkf/kdj.k dks bl rF; dk Kku Fkk fd ,sls izLrkoksa ls ftu xzkeokfl;ksa ds izHkkfor gksus dh laHkkouk gS mUgsa vf/klwfpr djus dk vf/kd izHkkoh <ax xzke iapk;r ds lwpuk Qyd vkSj izHkkfor {ks=ksa vU; lgtn`‘; LFkkuksa ij fpidk dj lwfpr djus dk gSA bu ifjfLFkfr;ksa esa] gekjh jk; gS fd izdk‘ku ds rhu <ax esa ls ,d <ax ds :i easa e-iz- jkti= esa izLrko ds aizdk‘ku ls lacaf/kr fu;e 3 dh vis{kk funs‘kkRed gS] vkKkid ughaA , vkb vkj 1961] ,l lh 751] , vkb vkj 1965 ,l lh 895] ¼2003½ 6 ,l lh lh 401] 1991 lIyh- ¼2½ ,l lh lh 753 rFkk ¼1996½ 3 ,l lh lh 634 vuqlfjrA ¿ iSjk 6À

       ¼3½ Hkkjr dk lafo/kku && vuq- 226 && yksd fgr eqdnek && xzke iapk;r ds {ks=] eq[;ky; vkfn esa ifjorZu ds izLrko ds vizdk‘ku ;k voS/k izdk‘ku ls vizHkkfor vf/koDrk }kjk && izdk‘ku ds rhu <ax micaf/kr && vk{ksi] jkti= esa izLrko ds izdk‘ku esa gqbZ vfu;ferrk rd lhfer && vU; <ax }kjk izdk‘ku dk u mlds }kjk [kaMu fd;k x;k] u izHkkfor {ks= ds fdlh fuoklh }kjk vk{ksfir && izdk‘ku ds vU; <axksa ls lacaf/kr vis{kk ds i;kZIr vuqikyu ds iz‘u ij fopkj fd;k tkuk vko‘;d ughaA ¿ iSjk 17À

       ¼4½ iapk;r jkt ,oa xzke Lojkt vf/kfu;e- 1993 ¼e-iz-½ && /kkjk 125¼1½] ijarqd && xzke iapk;r ds eq[;ky;] {ks= vkfn esa ifjorZu ds fy, lq>ko@vkifRrÙk;k¡ vkeaf=r djrs gq, izLrko && vis{kk,¡ && Li"V ‘‘kCnksa esa gksuk pkfg, && izHkkfor O;fDr;ksa ls vkifRrÙk;k¡@lq>ko vkeaf=r djuk pkfg, && vkifRrÙk;k¡@lq>ko Qkby fd, tkus dk vafre fnukad rFkk izkf/kdkjh fofufnZ"V gksuk pkfg, && vafre fnukad ls dkQh igys izdkf‘kr fd;k tkuk pkfg,A

       ¼5½ izFkk && lwpuk ;k izLrko dk jkti= esa izdk‘ku visf{kr && vkifRrÙk;k¡ Qkby djus ds fy, fu;r fnuakd ls dkQh igys izdkf‘kr fd;k vkSj miyC/k djk;k tkuk pkfg, && vU;Fkk og fdlh iz;kstu ds fy, mi;ksxh ugha gksxkA

        tc fdlh lwpuk ;k izLrko dk jkti= esa izdk‘ku fd;k tkuk visf{kr gks rc mls vkifRrÙk;k¡@lq>ko Qkby djus ds fy, fofgr vafre fnukad ls dkQh le; igys izdkf‘kr fd;k vkSj yksxksa dks miyC/k djk;k tkuk pkfg,A ftlls O;fFkr O;fDr;ksa ds ikl] ftuds Qk;ns ds fy, og vk‘kf;r gS] izLrkoksa ds ckjs esa tkuus vkSj ;g fopkj djus ds fy, fd izLrko mfpr gSa ;k ugha] oS/k gSa ;k ugah] Qk;nkizn gS ;k ugha rFkk vkifRrÙk;k¡ Qkby fd, tkus dh vis{kk djrs gq, vf/klwpuk fnukad 3-7-2004 izdkf‘kr djuk rFkk 9-7-2004 dks ml jkti= esa izdkf‘kr djuk fujFkZd gSA 8-7-2004 rd vkifRrÙk;k¡ Qkby fd, tkus dh vis{kk djus dh vf/klwpuk fnukad 3-7-2004] 7-7-2004 dks jkti= esa izdkf‘kr fd, tkus ij Hkh nks"kiw.kZ gksxhA ,slk blfy, gS D;ksafd ;|fi ,slh n‘kk esa izdk‘ku rduhdh :i ls vafre fnukad ls iwoZ gksxk] rFkkfi] vf/klwpuk yksxksa dks miyC/k djkus ;k izHkkfor O;fDr;ksa }kjk vkifRrÙk;k¡@lq>ko rS;kj fd, tkus vkSj mUgsa Qkby fd, tkus ds fy, le; ugha gksxkA 1991 lIyh- ¼2½ ,l lh lh 754 laikndh; fVIi.kh vuqlfjrA ¿ iSjk 19À

       ¼6½ izFkk && jkti= ds ek/;e ls vf/klwpuk dk izdk‘ku && jkti= esa eqnz.k ek= i;kZIr ugha tc rd fd og jkti= ftlesa vf/klwpuk varfoZ"V gS] yksxksa dks miyC/k ugha djk;k tk,A , vkb vkj 1968 ,l lh 668 vuqlfjrA ¿ iSjk 4À

       ¼7½ fof/k && vuqikyu visf{kr && ‘kkflr oxZ dks fof/k ds ckjsa esa] mlds leLr ifjorZuksa vkSj ;ksxksa lfgr] lh/ks vkSj voyacuh; <ax ls vf/klwfpr fd;k tkuk vko‘;d gS && ;g fofHké izfØ;kvksa }kjk fd;k tkuk pkfg, && fof/k fofnr gksuk pkfg,A , vkb vkj 1981 ,l lh 1059 vuqlfjrA ¿ iSjk 21À