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2015 Supreme(MP) 874
MADHYA PRADESH HIGH COURT
A.M. Khanwilkar, C.J. and Sanjay Yadav, J.
Gangaram Loniya Chohan and others v. State of M.P. and others
Writ Petitions No.7707 (PIL), 19318 of 2012 and Writ Petition No.14839 of 2013; Decided on 17.11.2015.
Manas Verma for petitioner in Writ Petition No.7707/2012;
P.K. Kaurav, Additional Advocate General with Amit Seth, Government Advocate for respondents No.1 to 3/State;
Himanshu Mishra for respondent No.4 in Writ Petition No.7707/2012;
Anil Khare with H.S. Chhabra for respondent No.7;
Kunal Thakre for petitioner in Writ Petitions No.19318/2012 and 14839/2013;
Himanshu MIshra for respondent No.5 in Writ Petition No.19318/2012.
Headnote:(1) Land Revenue Code, 1959 (M.P.) -- Ss.234(3) and 237(1)(b) -- M.P. Revenue Book Circulars, Part IV -- No.3 -- Con.20 -- land reserved under section 237(1)(b) for purposes mentioned therein -- application for exchange from Nistar Patrak by private firm -- rejected by Collector -- later on application by District Trade and Industrial Department for allotment of such land -- cannot be diverted or allotted except Abadi and agricultural purposes. [Paras 5, 6 & 12
(2) Land Revenue Code, 1959 (M.P.) -- S.237(1)(b) and (3) -- M.P. Revenue Book Circulars, Part IV -- No.1 -- Con.26 -- land reserved under section 237(1)(b) for purposes mentioned therein -- application by District Trade and Industrial Department for allotment of such land -- cannot be allotted or diverted except for purposes of Abadi and agricultural -- other than those purposes mentioned under section 231(1)(b) -- allotment order in respect of such land by Collector -- will have to be treated as non est and nullity in law -- same set aside.
Held : In absence of Rules for diversion of the land used for purposes mentioned in clause (b) of sub-section (1) of section 237 of the Code, it was not permissible to divert the user of such land to any other purpose than Abadi or agricultural or into both, muchless industrial purpose. Nevertheless, the diversion of the subject land was allowed notwithstanding the objection by the petitioner - Gram Panchayat, Padua that too for industrial purposes. As a result, the said diversion and allotment of subject land and in particular, the order passed by the Collector in that behalf will have to be treated as non est and nullity in law. 2015(3) JLJ 426 (FB), (2009)17 SCC 780, AIR 2009 SC 863, (2011)12 SCC 615 and AIR 1955 SC 481 referred to.
(3) Land Revenue Code, 1959 (M.P.) -- S.237(1)(b) and (3) -- M.P. Diversion Rules of Unoccupied Land, 1999 -- Rr.3, 4 and 5 -- as amended by Notification dated 15.5.2001 and 8.11.2002 -- 2% area of total agricultural land of village -- secured for purposes mentioned under section 237(1)(b) -- application for allotment and diversion for industrial purposes -- in absence of Rules -- diversion of such land to any other purpose than those purposes which are mentioned under section 237(1)(b) -- not permissible.
Held : Keeping in mind the statutory provisions as in vogue at the relevant time, the Collector was invested with the limited authority to divert such land only for Abadi or agricultural purposes and no other purpose.
(4) Land Revenue Code, 1959 (M.P.) -- S.237(3) -- M.P. Diversion Rules, 1999 -- under section 237(3) as amended with effect from 30.12.2011 -- prior to amendment -- diversion of land allowed by Collector for other purpose than Abadi or for agricultural use -- no amendment in Rules in force permitting diversion for industrial purpose or for that matter public utility projects -- such order of Collector is inherently lack of jurisdiction. [Para 16
(5) Land Revenue Code, 1959 (M.P.) -- S.237(3) proviso -- as amended with effect from 30.12.2011 -- expression under -- "as other public utility projects" -- means of -- is "any other" -- such expression must be read ejusdem generis along with other preceding specified users -- Authorities cannot be permitted to do something which law does not permit them to do so. [Paras 17 to 21
(6) Land Revenue Code, 1959 (M.P.) -- S.237(3) -- as amended with effect from 30.12.2011 -- policy of State Government -- cannot be contrary to mandate of statutory provisions in vogue -- if such policy framed when law mandated user of land earmarked for pasture, grass Bir or foder reserve only for Abadi or agricultural purposes -- policy providing for any other user -- would be ultra vires the statutory provisions. [Para 22
(7) Constitution of India -- Arts.226 and 227 -- writ petitioner as PIL -- objections about maintainability of petition on several grounds -- diversion of land for purpose other than prescribed by law -- Gram Panchayat resisting diversion of land -- impugned order without jurisdiction -- petitioners are not only interested persons but also aggrieved by order of Collector -- such objections rejected. [Para 25
¼1½ Hkw&jktLo lafgrk] 1959 ¼e-iz-½ && /kkjk 234¼3½ rFkk 237¼1½¼[k½ && e-iz- jktLo iqLrd ifji= Hkkx pkj && Ø-3 && dafM-20 && /kkjk 237¼1½¼[k½ ds v/khu mfYyf[kr iz;kstuksa ds fy, vkjf{kr Hkwfe && izkbosV QeZ }kjk fuLrkj i=d ls vnyk&cnyh ds fy, vkosnu && dyDVj }kjk [kkfjt fd;k x;k && okn esa ftyk O;kikj vkSj vkS|ksfxd foHkkx }kjk ,slh Hkwfe ds vkcaVu ds fy, vkosnu && vkcknh vkSj d`f"k iz;kstuksa ds flok; O;iofrZr vkSj vkcafVr ugha dh tk ldrhA ¼iSjk 5] 6 ,oa 12½
¼2½ Hkw&jktLo lafgrk] 1959 ¼e-iz-½ && /kkjk 237¼1½¼[k½ rFkk ¼3½ && e-iz- jktLo iqLrd ifji= Hkkx pkj && Ø-1 && dafM-26 && /kkjk 237¼1½¼[k½ ds v/khu mfYyf[kr iz;kstuksa ds fy, vkjf{kr Hkwfe && ,slh Hkwfe ds vkcaVu ds fy, ftyk O;kikj vkSj vkS|ksfxd foHkkx }kjk vkosnu && vkcknh vkSj d`f"k iz;kstuksa ds flok; vkcafVr ;k O;iofrZr ugha dh tk ldrh && /kkjk 237¼1½¼[k½ ds v/khu mfYyf[kr iz;kstuksa dh vis{kk vU; iz;kstuksa ds fy, && ,slh Hkwfe ds vkcaVu ds fo"k; esa dyDVj dk vkns'k && fof/k dh n`f"V esa ukfLr vfHkokd~ vkSj v[karrk ds :i esa ekuuk gksxk && ogh vikLr fd;k x;kA
vfHkfu/kkZfjr % fu;eksa ds vHkko esa lafgrk dh /kkjk 237 dh mi/kkjk ¼1½ ds [kaM ¼[k½ esa mfYyf[kr iz;kstuksa ds fy, iz;qDr Hkwfe dk O;iorZu] ,slh Hkwfe ds mi;ksx dk vkcknh ;k d`f"k ;k nksuksa iz;kstu dh vis{kk fdlh vU; ds fy, O;iorZu djuk vuqKs; ugha Fkk] de ls de vkS|ksfxd iz;kstu ds fy,A rFkkfi] ;kph xzke iapk;r dh vkS|ksfxd iz;kstuksa ds fy, Hkh vkifÙk;k¡ gksrs gq, fo"k; Hkwfe dk O;iorZu eatwj fd;k x;k Fkk] ftldk ifj.kke] fo"k; Hkwfe dk dfFkr O;iorZu ,oa vkcaVu ,oa fo'ks"k :i ls] dyDVj }kjk ikfjr bl mn~ns'; ls ikfjr vkns'k ukfLr rFkk vd`rrk gksuk ekuuk gksxkA 2015¼3½ ts ,y ts 426 ¼iw.kZ U;k;ihB½ ¼2009½ 17 ,l lh lh 780] , vkb vkj 2009 ,l lh 863] ¼2011½ 12 ,l lh lh 615 rFkk , vkb vkj 1955 ,l lh 481 fufnZ"VA
¼3½ Hkw&jktLo lafgrk] 1959 ¼e-iz-½ && /kkjk 237¼1½¼[k½ rFkk ¼3½ && e-iz- n[ky jfgr Hkwfe ds O;iorZu fu;e] 1999 && fu-3] 4 rFkk 5 && vf/klwpuk fnukad
15-5-2001 rFkk 8-11-2002 }kjk ;Fkk la'kksf/kr && xzke dh dqy d`f"k Hkwfe dk 2% {ks=Qy && /kkjk 237¼1½¼[k½ ds v/khu mfYyf[kr iz;kstuksa ds fy, lqjf{kr && vkS|ksfxd iz;kstuksa ds fy, vkcaVu ,oa O;iorZu ds fy, vkosnu && fu;eksa ds vHkko esa && ,slh Hkwfe dk /kkjk 237¼1½¼[k½ ds v/khu mfYyf[kr iz;kstuksa dh vis{kk vU; iz;kstu ds fy, O;iorZu && vuqKs; ughaA
vfHkfu/kkZfjr % izklkafxd le; izpfyr dkuwuh mica/kksa dks /;ku esa j[krs gq,] dyDVj dks ,slh Hkwfe dk dsoy vkcknh ;k d`f"k iz;kstuksa ds fy, lhfer izkfèkdkj Fkk ,oa fdlh vU; iz;kstu dk ughaA
¼4½ Hkw&jktLo lafgrk] 1959 ¼e-iz-½ && /kkjk 237¼3½ && mica/k ds v/khu e-iz- O;iorZu fu;e] 1999 && /kkjk 237¼3½ ;Fkk la'kksf/kr 30-12-2011 ls izHkkoh && la'kks/ku ls iwoZ && dyDVj }kjk vkcknh ;k d`f"kd mi;ksx dh vis{kk vU; iz;kstu ds fy, Hkwfe dk O;iorZu && izo`Ùk fu;eksa esa ,slk dksbZ la'kks/ku ugha tks vkS|ksfxd iz;kstu ;k yksd mi;ksxh ifj;kstuk fo"k;d O;iorZu vuqKs; djrk && dyDVj dk ,slk vkns'k ewyr% vf/kdkfjrk jfgr gSA ¼iSjk 16½
¼5½ Hkw&jktLo lafgrk] 1959 ¼e-iz-½ && /kkjk 237¼3½ ijarqd && ;Fkk la'kksf/kr 30-12-2011 ls izHkkoh && mica/k ds v/khu vfHkO;fDr && ßvU; yksd mi;ksxh ifj;kstuk,¡Þ && ls vfHkizsr && ßdksbZ vU;Þ gS && ,slh vfHkO;fDr dks iwoZorhZ fofufnZ"V mi;ksxksa ds lkFk mlh izdkj dk i<+uk pkfg, && izkf/kdkfj;ksa dks dqN pht djus ds fy, vuqKs; ugha fd;k tk ldrk ftls fof/k ,slk djus ds fy, vuqKkr ugha djrhA ¼iSjk 17 ls 21½
¼6½ Hkw&jktLo lafgrk] 1959 ¼e-iz-½ && /kkjk 237¼3½ && ;Fkk la'kksf/kr
30-12-2011 ls izHkkoh && jkT; ljdkj dh uhfr && izpfyr dkuwuh mica/kksa dh vkKk ds izfrdwy ugha gks ldrh && ;fn ,slh uhfr rc fojfpr dh xbZ Fkh tc fof/k }kjk pkjkxkg] ?kkl] chM+ ;k pkjs ds fy, vkjf{kr Hkwfe dks dsoy vkcknh ;k d`f"k iz;kstuksa ds mi;ksx ds fy, i`Fkd djuk vknsf'kr Fkk && dksbZ vU; mi;ksx iznku djus ds fy, uhfr && dkuwuh mica/kksa ds vf/kdkjkrhr gksxhA ¼iSjk 22½
¼7½ Hkkjr dk lafo/kku && vuq-226 rFkk 227 && yksdfgr eqdnek ds :i esa fjV ;kfpdk && ;kfpdk dk pykus ;ksX; gksus ds fo"k; esa vusd vk/kkjksa ij vkifÙk;k¡ && fofèk }kjk fofgr dh vis{kk vU; iz;kstu ds fy, Hkwfe dk O;iorZu && xzke iapk;r }kjk Hkwfe O;iorZu dk fojks/k fd;k x;k && vk{ksfir vkns'k vf/kdkfjrk jfgr && ;kphx.k u dsoy fgrc} O;fDr gS fdarq dyDVj ds vkns'k ls ifjosfnr Hkh gS && ,slh vkifÙk;k¡ [kkfjt dh xb±A ¼iSjk 25½
Khanwilkar, C.J. -- 1. This common judgment will dispose of all the three writ petitions as overlapping issues have been raised in these matters.
2. Writ Petition No.7707/2012 is filed on 15.5.2012, as public interest litigation praying for the following reliefs :
“(i) to direct the respondents to produce the entire record relating to impugned exchange of land for kind perusal of Hon’ble Court;
(ii) to issue a writ in the nature of certiorari for quashing impugned orders in Annexures P-1 (dated 1.1.2011) and P-2 (dated 5.1.2011);
(iii) to issue a writ in the nature of mandamus directing respondents to forth with restore the use of land in question as Grass Land (Gouthan) in the revenue records;
(iv) Any other writ/direction or order which this Hon’ble Court may deem just and proper under the facts and circumstances of the case may also be granted;
(v) Costs of the petition may kindly be allowed.”
3. The reliefs claimed in Writ Petition No.19318/2012 filed on 8.11.2012 by the Gram Panchayat Padua, read thus :
“(i) This Hon’ble Court may kindly be pleased to issue appropriate writ to set aside the impugned order dated 4.9.2012 (Annexure P-14).
(ii) This Hon’ble Court may kindly be pleased to issue appropriate writ to set aside the impugned order dated 5.1.2011 (Annexure P-1).
(iii) This Hon’ble Court may kindly be pleased to issue appropriate writ to set aside the impugned order dated 14.6.2011 (Annexure P-2).
(iv) This Hon’ble Court may further kindly be pleased to issue appropriate writ commanding the respondent to remove the structure already erected by them on the land in question and return the land back as Nistar Bhumi.
(v) This Hon’ble Court may further kindly be pleased to direct the land 3.18 hect. (7.87 acres) already taken back from the respondent No.5 to be used as Nistar Bhumi.
(vi) Any other relief/order/direction as deem fit and proper in the present facts and circumstances of case may be issued.
(vii) Cost of the petition may also be granted.
(viii) This Hon’ble Court may kindly be pleased to issue a Writ of Certiorari and quash the circular dated 4.12.2009 bearing No.F.4-1/2003/Seven/2A (Annexure P-15).
(ix) This Hon’ble Court may kindly be pleased to issue a Writ of Certiorari and quash the obtained in principal sanction dated 16.6.2010 bearing No.F-20/05/2010/B/Eleven (Annexure P-16).
(x) This Hon’ble Court may kindly be pleased to direct the respondents to demolish the construction raised by the respondent No.5 on the land in question.”
4. The reliefs claimed in Writ Petition No.14839/2013 filed on 22.8.2013, by the same petitioner (Gram Panchayat, Padua) read thus :
“(i) This Hon’ble Court may kindly be pleased to issue appropriate writ and to set aside the draft Nistar Patrak and further to direct the respondents to prepare fresh Draft Nistar Patrak after following statutory provisions.
(ii) This Hon’ble Court may kindly be pleased to issue appropriate writ commanding the respondents not to shift the land reserved for Imarati lakdi athwa indhan hetu surakshit to grassland.
(iii) This Hon’ble Court may kindly be pleased to issue appropriate writ commanding the respondents not to include lands already being used for various other purposes, as grassland.
(iv) This Hon’ble Court may kindly be pleased to issue appropriate writ commanding the respondents to make necessary changes in the draft Nistar Patrak as per the objections submitted by the Petitioner Gram Panchayat and other Villagers and thereafter finalise the Nistar Patrak.
(v) Any other relief/order/direction as deem fit and proper in the present facts and circumstances of case may be issued.
(vi) Cost of the petition may also be granted.”
5. Briefly stated, the private respondent (M/s. Sukh Sagar Food Private Limited – respondent No.5 in Writ Petition No.19318/2012 and respondent No.4 in Writ Petition No.7707/2012) made application to the Collector, Katni under section 234(2)(3) read with RBC Part IV Chapter 3-20 of the M.P. Land Revenue Code, 1957 for exchang
