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IN THE HIGH COURT OF MADHYA PRADESH
Rohit Arya and Deepak Kumar Agarwal, JJ.
Ekkisvi Sadi Grih Nirman Sahkari Samiti v. State of M.P. & Others
Writ Appeals No. 69 of 2020, 17 of 2020 and 16 of 2020; against order dated 13.12.2019, Passed in W.P. No. 19912/2019; Decided on 27.1.2022.
¼1½ uxj rFkk xzke fuos'k vfèkfu;e] 1973 ¼eŒçŒ½ & èkkjk 56 rFkk 50 & eŒçŒ uxj rFkk xzke fuos'k fu;e] 2012 & fu- 20¼4½¼d½ rFkk 20¼4½¼[k½ & futh Lokfe;¨a ls Òwfe vtZu djus dk vfèkdkj & Xokfy;j fodkl çkfèkdj.k vafre ;¨tuk d¢ çdk'ku ds fnukad ls rhu o"kZ d¢ Òhrj futh Lokfe;¨a ls Òwfe vftZr dj ldrk gS & micaèk funs'kkRed gS] vkKkid ugha & rhu o"kZ dh vfèkdre lhek ugha gSA
vfÒfuèkkZfjr% lu~ 1973 d¢ vfèkfu;e dh èkkjk 56 ds lkFk ifBr lu~ 2012 d¢ fu;e¨a d¢ fu;e 20¼4½¼d½ rFkk ¼[k½ esa ;g micaf/kr gS fd çkfèkdj.k èkkjk 50 d¢ vèkhu vafre ;¨tuk d¢ çdk'ku ds fnukad ls rhu o"kZ d¢ Òhrj djkj }kjk futh Lokfe;¨a ls Òwfe vftZr dj ldrk gSA ;g micaèk funs'kkRed gS] vkKkid ughaA bld¢ vykok] futh Lokfe;¨a d¢ lkFk djkj }kjk Òwfe vftZr djus d¢ fy, rhu o"kZ dh d¨Ã vf/kdre lhek ugha gSA bld¢ vfrfjDr] Òys gh fodkl çkfèkdj.k us vafre fodkl ;¨tuk d¢ çdk'ku d¢ rhu o"kZ igys ;k ckn esa jkT; ljdkj ls Òwfe vfèkxzg.k djus dk vuqj¨èk fd;k g¨] fQj Òh çkfèkdj.k futh Lokeh d¢ vkosnu ij mld¢ lkFk djkj d¢ }kjk Òwfe dk vfèkxzg.k dj ldrk gS] ijarq fuLlansg rc tc l{ke çkfèkdkjh }kjk Òwfe vtZu vfèkfu;e dh èkkjk 6 d¢ vèkhu dk;Zokgh 'kq: ugha dh xà g¨A , vkb vkj 1992 ,e ih 72 voyafcrA fjV ;kfpdk Øekad 13166 lu~ 2010 fu.kÊr fnukad 15-7-2011 fufnZ”VA ¼iSjk 16½
ifj.kkeLo:i] vk{ksfir vkns'k esa] lu~ 1973 d¢ vfèkfu;e dh èkkjk 56 dk fuoZpu lgh ugha gS v©j blfy, mls vikLr fd;k tkrk gSA ;g vfÒfuèkkZfjr fd;k tkrk gS fd lu~ 1973 d¢ vfèkfu;e dh èkkjk 56 esa ;g vuq/;kr gS fd èkkjk 50¼7½ d¢ vèkhu vafre ;¨tuk d¢ çdk'ku ds fnukad d¢ i'pkr~ uxj rFkk xzke fodkl çkfèkdj.k rhu o"kZ dh dkykofèk d¢ Òhrj ;¨tuk d¢ dk;kZUo;u d¢ fy, vko';d Òwfe djkj }kjk futh Lokfe;¨a ls vftZr djus dh dk;Zokgh dj ldrk gS] ;g vuq/;kr ugha gS fd rhu o"kZ d¢ Òhrj vtZu iwjk djuk gSA bld¢ vfrfjDr] ;fn fdlh dkj.k ls og vtZu djus esa vlQy jgrk gS r¨ og jkT; ljdkj ls Òwfe vtZu vfèkfu;e] 1894 d¢ micaèk¨a d¢ vèkhu ,slh Òwfe dk vtZu djus dk vuqj¨èk dj ldrk gSA ,slk vuqj¨èk ifjlhek dh dkykofèk d¢ vè;èkhu ugha gSA bld¢ vykok] jkT; ljdkj ls vuqj¨èk fd, tkus d¢ i'pkr~ Òh] tSlk iwo¨ZDr gS] fu;e 20 d¢ mifu;e 4¼[k½ d¢ vèkhu çkfèkdj.k] Òwfe d¢ Lokeh d¢ vkosnu ij] çk:i 20 esa djkj dj ldrk gS] ijarq ;g fd ,sls djkj ds fnukad d¨ l{ke çkfèkdkjh }kjk Òwfe vtZu vfèkfu;e] 1894 dh èkkjk 6 d¢ vèkhu dk;Zokgh vkjaÒ ugha dh xà g¨A ¼iSjk 16½
¼2½ iwoZ fu.kZ; & vfÒçsr & fofèk d¢ micaèk¨a ,oa iwoZrj fu.kZ; ij fopkj fd, fcuk ikfjr vkns'k & vuo/kkurk d¢ dkj.k ikfjr & iwoZ fu.kZ; d¢ fu;e dk viokn gSA
vfÒfuèkkZfjr% fo}ku ,dy U;k;ihB us lu~ 1973 d¢ vfèkfu;e dh èkkjk 56 d¢ fuoZpu ds laca/k esa viuk fu"d"kZ iq"V djus d¢ fy, jkts’k dqekj xqIrk rFkk vU; fo#) eŒçŒ jkT; rFkk vU; ¼mi;qZDr½ d¢ çdj.k esa bl U;k;ky; dh led{k U;k;ihB d¢ fu.kZ; dk voyac fd;k gSA ¼iSjk 16½
bl U;k;ky; us mi;qZDr fu.kZ; d¨ è;ku ls iढkA ,slk çrhr g¨rk gS fd led{k U;k;ihB ¼[kaM U;k;ihB½ }kjk èkkjk 56 esa ç;qDr 'kCn ^^vftZr djus d¢ fy, dk;Zokgh dj ldrk gS^^ v©j lu~ 2012 d¢ fu;e¨a d¢ fu;e 20 mifu;e 4¼d½ rFkk ¼[k½ ij fopkj fd;k tkuk jg x;k v©j ;g Hkh çrhr g¨rk gS fd lat; xkaèkh x`g fuekZ.k lgdkjh laLFkk e;kZfnr fo#) eŒçŒ jkT; ¼, vkb vkj 1991 ,e ih 302½ dk fu.kZ; Hkh ekuuh; U;k;ihB ds è;ku esa ugha yk;k x;kA gekjh lqfopkfjr jk; esa] ;fn mi;qZDr fofèk d¢ micaèk v©j fu.kZ; d¨ led{k U;k;ihB d¢ è;ku esa yk;k x;k g¨rk rks U;k;ihB }kjk èkkjk 56 d¢ fuoZpu ij fudkys x, fu"d"kZ ls cpk tk ldrk FkkA bl çdkj] fu.kZ; vuo/kkurk d¢ dkj.k ikfjr gqvk gS v©j iwoZ fu.kZ; d¢ fu;e dk viokn gSA ¼iSjk 16½
ifj.kker% bl U;k;ky; ds o'k esa iw.kZ fouezrk d¢ lkFk v©j [kaM U;k;ihB d¢ çfr lE;d~ lEeku d¢ lkFk] jkts’k dqekj xqIrk ¼mi;qZDr½ dk fu.kZ; e©u jgrs gq, ikfjr fd;k x;k gS v©j blfy,] Åij fn, x, foLr`r dkj.k¨a ls] vuo/kkurk d¢ dkj.k ikfjr gSA 2013 ¼2½ ,e ih ,y ts 707 vuo/kkurk d¢ dkj.k ikfjr vfÒfuèkkZfjrA , vkb vkj 1991 ,e ih 302 fufnZ"VA ¼1989½ 1 ,l lhlh 101 rFkk ¼1991½ 4 ,l lh lh 139 vuqlfjrA ¼iSjk 16½
¼3½ lafonk vfèkfu;e] 1872 & èkkjk 10 rFkk 23 & djkj dh oSèkrk] fofèk ekU;rk rFkk çorZuh;rk & x`g fuekZ.k lfefr] Xokfy;j fodkl çkfèkdj.k rFkk Òwfe Lokfe;¨a d¢ eè; djkj & jftLVªhÑr ugha & Xokfy;j fodkl çkfèkdj.k dh v¨j ls gLrk{kjdrkZ eq[; dk;Zikyu vfèkdkjh d¨ vfèkÑr djus dk Xokfy;j fodkl çkfèkdj.k dk d¨Ã ladYi ugha & djkj dk lR;kiu ugha & çfrQy dk lank; çdV ugha & djkj èkkjk 10 dh vis{kkv¨a dh iwfrZ ugha djrk & ,slk djkj fofèk esa çorZuh; ughaA ¼iSjk 17½
¼4½ uxj rFkk xzke fuos’k vfèkfu;e] 1973 ¼eŒçŒ½ & èkkjk 56 & eŒçŒ uxj rFkk xzke fuos'k fu;e] 2012 & fuŒ 20¼4½¼d½ rFkk 20¼4½¼[k½ & Xokfy;j fodkl çkfèkdj.k] x`g fuekZ.k lfefr rFkk futh Lokfe;¨a d¢ eè; djkj fnukad 28-12-1997 & lfefr dk vfèkdkj & 20 chÄk 6 fcLok Òwfe d¢ fo"k; esa Xokfy;j fodkl çkfèkdj.k }kjk djkj çfrf{kIr & Xokfy;j fodkl çkfèkdj.k }kjk og Òwfe djkj fnukad 7-6-2019 ds ek/;e ls futh Lokfe;¨a ls vftZr dh xà & 2-5 Áfr'kr fodflr Hkw[kaM futh Lokfe;¨a dks vkcafVr & djkj fnukad 28-12-1997 igys gh voSèk fu"df"kZr & ,dy U;k;kèkh'k }kjk Xokfy;j fodkl çkfèkdj.k dk vkns'k vfÒiq"V & lfefr vuqr¨”k pkgus dh gdnkj ugÈ & çR;FkÊ Øekad 4 d¨ dCtk l©aius dk funs'k vikLrA ¼iSjk 18 ,oa 19½
¼5½ Òkjr dk lafoèkku & vuqPNsn 226 & 'kfDr dh O;kfIr & ;g vfÒO;Dr dj fn;k x;k fd fookfnr rF;¨a dk U;k; fu.kZ;u ugha fd;k tk ldrk & çFke bfRryk fji¨VZ iathÑr dj vUos"k.k djus v©j n¨"kh O;fDr;¨a dks vfÒ;¨ftr djus dk funs'k nsus dk dksbZ ç;kstu ugha & vfèkdkfj;¨a esa ls fdlh dks Òh çR;FkÊ ugha cuk;k x;k & d¨Ã volj ugha fn;k x;k & mu ij xaÒhj dyad yxk;k x;k & tc rd ckè;dkjh dkj.kksa ls nkafMd vUos"k.k vko';d ugha g¨] fjV U;k;ky; d¨ ,slh ifj.kfr ls cpuk pkfg, & ,slk funs'k vikLr & lfefr d¢ fo#) tkap fd, tkus dk funs'k vfÒiq"VA ¼iSjk 19 ls 21½
(1) Nagar Tatha Gram Nivesh Adhiniyam, 1973 (M.P.) -- Ss. 56 and 50 -- M.P. Nagar Tatha Gram Nivesh Niyam, 2021 -- R. 20 (4) (a) and 20 (4) (b) -- right of acquisition of land from private owners -- GDA may acquire land through agreement with private owners within three years from date of publication of final scheme -- provision is directory, not mandatory -- there is no outer limit of three years.
Held: Section 56 of the Adhiniyam of 1973 read with rule 20 sub-rule 4(a) & (b) of the Rules of 2012 provides that the Authority may proceed to acquire land through agreements with private owners within three years from the date of final publication of scheme under section 50. The provision is directory and not mandatory. Besides, there is no outer limit of three years to acquire land by agreement with private owners. That apart, even if the Development Authority has requested the State Government to acquire land before or after three years of publication of final development scheme, still the Authority can acquire the land by way of agreement with private owner upon his/her application, of course if the proceedings under section 6 of the Land Acquisition Act have not been initiated by the competent Authority. AIR 1991 MP 72 relied on. W.P. No. 13166 of 2010 decided on 15.7.2011 referred to. [Para 16]
Consequently, in the impugned order, interpretation of section 56 of the Adhiniyam of 1973 is not correct and therefore set aside. It is held that section 56 of the Adhiniyam of 1973 contemplates that after the date of publication of final scheme under section 50 (7), the Town and Country Development Authority may proceed to acquire the land required for the implementation of the scheme within a period of three years by agreement with the owners of the land and not complete the acquisition within three years. Further, if for any reason it fails so to acquire, it may request the State Government to acquire such land under the provisions of the Land Acquisition Act, 1894. Such request is not subject to period of limitation. Besides, even after request is made to the State Government, as aforesaid, under rule 20 sub-rule 4 (b), the Authority may, on an application of the owner of the land, enter into agreement in Form-XX, provided that on the date of such agreement, proceedings under section 6 of the Land Acquisition Act, 1894 have not been initiated by the competent authority. [Para 16]
(2) Precedent -- meaning -- order passed without considering provisions of law and earlier decision -- is per incuriam -- is exception to rule of precedence.
Held: Learned Single Judge has placed reliance on decision of a coordinate Bench of this Court in the case of Rajesh Kumar Gupta and others v. State of M.P. & others (supra) to fortify his conclusion on the interpretation of S.56 of the Adhiniyam of 1973. [Para 16]
This Court has carefully read the said judgment. The words “may proceed to acquire” used in section 56 and rule 20 sub-rule 4 (a) and (b) of the Rules of 2012 appear to have escaped consideration by the coordinate Bench (Division Bench) and it further appears that the judgment in the case of Sanjay Gandhi GrahNirmanSahkari Sanstha Maryadit v. State of M.P. (AIR 1991 MP 302) was also not brought to the notice of the Hon’ble Bench. In our considered opinion, had the aforesaid provision of law and the judgment been brought to the notice of the coordinate Bench, the conclusion drawn by the Bench on interpretation of section 56 could have been avoided. As such, the judgment is per incuriam and an exception to the rule of precedence. [Para 16]
Resultantly, with full humility in command of this Court and due respect to the Division Bench, the judgment rendered in Rajesh Kumar Gupta (supra) is passed sub silentio and therefore is per incuriam for the reasons detailed above.2013 (2) MPLJ 707 held per incuriam. AIR 1991 MP 302 referred to. (1989) 1 SCC 101 and (1991) 4 SCC 139 followed. [Para 16]
(3) Contract Act, 1872 -- Ss. 10 and 23 -- legality, validity and enforceability of agreement -- agreement between housing society, GDA and land owners -- not registered -- no resolution of GDA authorising signatory CEO on behalf of GDA -- no verification of agreement -- no disclosure of payment of consideration -- agreement does not fulfill requirements of section 10 -- such agreement is not enforceable in law. [Para 17]
(4) Nagar Tatha Gram Nivesh Adhiniyam, 1973 (M.P.) -- S. 56 -- M.P. Nagar Tatha Gram Nivesh Niyam, 2012 -- R. 20(4) (a) and 20(4) (b) -- agreement dated 28.12.1997 between GDA, housing society and private owners -- right of society -- agreement resiled by GDA in respect of 20 bigha 6 biswa land -- that land acquired by GDA from private owners by agreement dated 7.6.2019 -- 2.5% developed plots allotted to private owners -- agreement dated 28.12.1997 already concluded illegal -- order of GDA affirmed by Single Judge -- society not entitled to seek relief -- direction to hand over possession of plots to respondent No. 4 set aside. [Paras 18 and 19]
(5) Constitution of India -- Art. 226 -- scope of powers -- once it is expressed that disputed facts cannot be adjudicated -- no occasion to direct registration of FIR to investigate and prosecute guilty person -- none of the officers arrayed as respondents -- no opportunity afforded -- serious aspersion cast upon them -- unless compelling reasons warrant criminal investigation, writ Court should avoid such eventuality -- such direction set aside -- direction about enquiry against society affirmed. [Paras 19 to 21]
JUDGMENT
Arya, J:- 1. This set of three writ appeals is directed against the impugned order dated 13.12.2019 rendered in W.P. No.19912/2019.
2. The factual matrix involved has a chequered history. The appellant in W.A. No.69/2020 is said to be a Co-operative Housing Society (hereinafter referred to as “the Housing Society”) registered under the M.P. Cooperative Societies Act, 1960. Appellant No.1 Kamal Singh in W.A. No.16/2020 is the owner of land falling in Survey No. 388 admeasuring 20 bigha 6 biswa situated at Village Mau, Tahsil and District Gwalior (for brevity “owner of disputed land”). Appellants in W.A.No.17/2020 are Gwalior Development Authority (for short “the GDA”).
3. Notified Development Scheme was finally published under section 50(7) of the M.P. Nagar Tatha Gram Nivesh Adhiniyam 1973 (hereinafter referred to as “the Adhiniyam of 1973”) known as “Maharajpur Residential Scheme” in Official Gazette on 20.1.1989. Under section 56 of the Adhiniyam, the GDA proceeded to acquire land by way of agreements. Amongst others, the GDA entered into two agreements dated 23.11.1996 and 28.12.1997 with the Housing Society in respect of the notified land situated at Village Mow. The agreement dated 23.11.1996 was entered into in respect of land falling in Survey Nos. 858/2 min admeasuring 5 Bigha, 850/1 min admeasuring 7 bigha, total 12 bigha 4 biswa, whereas agreement dated 28.12.1997 was in respect of lands falling in Survey No.858 Min area 1 bigha, Survey No.386 min area 13 bigha 13 biswa, Survey No.412/1 area 2 bigha, Survey No.498 area 2 bigha 6 biswa, 373/2 area 2 bigha 9 biswa, Survey No.388 admeasuring 20 bigha 6 biswa, Survey No. 375 area 4 bigha 10 biswa, Survey No.374 area 0.10 biswa, Survey No. area 09 total area 47 bigha 3 biswa.
4. As such, under the agreement dated 23.11.1996, 12 bigha and 4 biswa and under agreement dated 28.12.1997, 47 bigha 3 biswa, total 59 bigha 7 biswa of land was surrendered. For the purpose of disposal of these appeals, the land falling in Survey No.388 admeasuring 20 bigha 6 biswa under the agreement dated 28.12.1997 is relevant (hereinafter referred to as the “disputed land”).
5. On 24.12.1997, the Housing Society entered into an agreement to sell with Kamal Singh (appellant no.1 in W.A. No.16/2020) in respect of the disputed land. Thereafter, on 28.12.1997, a tripartite agreement was entered into between the Housing Society, owner of disputed land and other owners of different lands of different survey numbers falling within the scope of notified scheme on one side and GDA on the other side. It was agreed thereunder to allot 25% of plots out of the total developed area from the surrendered land to the Housing Society. During the period 29.6.1998 to 2.6.2000, developed plots comprising area 3216 square meters and 11886 square meters were allotted to the Housing Society.
6. It appears that with the passage of time as the land prices increased, some dispute arose between the Housing Society and owner of disputed land. According to GDA, an application dated 24.5.2017 was received supported by an affidavit of President of Society dated 19.5.2017, to exclude the disputed land admeasuring 17 bigha 6 biswa from the tripartite agreement. On 25.9.2018, the GDA replied and expressed its inability to release Survey No.388 area 17 bigha 6 biswa out of total area of 20 bigha 6 biswa for the reason that the Housing Society had already received possession of the developed plots more than its entitlement to the extent of 8190 square meter. It was also stated thereunder that 3 bigha land out of Survey No.388 had already been released in the shape of developed plots to the Housing Society. The value thereof, as per Collector guidelines, was calculated as 8,19,85,000/-. For ready reference, the rejection order (relevant part) dated 25.9.2018 (Annexure P/8) passed by the GDA is quoted infra:-
^^vkids }kjk vuqcaf/kr Hkwfe losZ Øekad 388 jdok 20 ch?kk 06 foLok esa ls 17 ch?kk 06 foLok Hkwfe dk vuqca/k fujLr djus gsr
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