2023 Supreme(MP) 293

IN THE HIGH COURT OF MADHYA PRADESH
Sujoy Paul and Amar Nath (Kesharwani), JJ.
Commissioner, Jabalpur & another v. Shailendra Choudhary
Writ Appeal No. 318 of 2018 and Writ Petition No. 6880 of 2017 (Jabalpur): against the order dated 15.12.2017 passed in W. P. No. 1083 of 2015 [reported in 2018 (1) RN 76);
Decided on 5.4.2023.

Headnote:

¼1½ mPp U;k;ky; ¼[kaM U;k;ihB dks vihy½ vf/kfu;e] 2005 ¼e-iz-½ && /kkjk 2 ¼1½ && vihy pyus ;ksX; gksuk && dksyksukbtj ,oa HkwfeLokeh dh nks fHkUu vihyksa esa vk;qDr }kjk nks fHkUu vkns'k ikfjr fd, x, && vk;qDr vafre izkf/kdkjh ugha Fkk && HkwfeLokeh ds ekeys esa ikfjr mldk i'pkr~orhZ vkSj fHkUu vkns'k jkT; ljdkj }kjk iqujh{k.k dh fo"k;oLrq cuk && jkT; ljdkj }kjk vikLr fd;k x;k && jkT; ljdkj dk vafre vkns'k lac) fjV ;kfpdk esa iz'uxr && loksZPp izkf/kdkjh@jkT; ljdkj ds vkns'k ds lEeq[k vk;qDr dk fHkUu er egRoghu gks tkrk gS && bl dkj.k fjV vihy BqdjkbZ ugha tk ldrhA ¼iSjk 43
¼2½ uxj rFkk xzke fuos'k vf/kfu;e] 1973 ¼e-iz-½ && /kkjk 14] 15] 16 18 rFkk 19 && e-iz- Hkwfe fodkl fu;e] 2012 && fu- 103 && HksM+k?kkV fodkl ¼izk:i ;kstuk½ 2021 && [kaM 7-2 rFkk 7-17 && lu~ 2012 ds fu;eksa dk ykxw gksuk && ;|fi lu~ 2012 ds fu;eksa ds v/khu vf/klwfpr ifj;kstuk {ks=ksa esa HksM+k?kkV lfEefyr ugha vkSj izk:i ;kstuk ds [kaM 7-2 ds vuqlkj lu~ 2012 ds fu;e ykxw ugha gksrs && rFkkfi lu~ 2012 ds fu;eksa ds fu;e 103 rFkk izk:i ;kstuk ds [kaM 7-17 ds vuqlkj HksM+k?kkV ifj;kstuk {ks= dks lu~ 2012 ds fu;e ykxw gksrs gSaA
vfHkfu/kkZfjr % lkekU; :i ls ;g Li"V dj fn;k fd lu~ 2012 ds fu;e ykxw ugha fd, x, FksA HksM+k?kkV ds oSf'k"V~; dk /;ku j[kus ds fy, HksM+k?kkV fodkl ¼izk:i½ ;kstuk esa [kaM 7-17 var%LFkkfir fd;k x;kA tSlk Åij /;ku fn;k x;k] fo}ku ,dy U;k;k/kh'k us viuk vkns'k dsoy izk:i ;kstuk ds [kaM 7-2 ij vk/kkfjr fd;k gSA [kaM 7-2 lko/kkuhiwoZd iढ+us ls ;g Hkh nf'kZr gksrk gS fd ;|fi lu~ 2012 ds fu;eksa dks fofufnZ"Vr% HksM+k?kkV dks ^ifj;kstuk {ks=* esa lfEefyr djrs gq, vf/klwfpr ugha fd;k Fkk] rFkkfi mlesa vkxs micaf/kr gS fd fodkl izk:i ;kstuk esa mfYyf[kr fu;e ykxw gksaxs vkSj fodkl ;kstuk dk Hkkx gksaxsA ¼iSjk 47
fufoZokfnr :i ls] fo}ku ,dy U;k;k/kh'k us [kaM 7-17 ds ifj.kke vkSj izHkko ij fopkj ugha fd;k] vkSj blfy, ge fo}ku ljdkjh vfèkoDrk ds bl rdZ esa lkj ikrs gSa fd ;g [kaM fjV U;k;ky; ds le{k pqukSrh dk fo"k; cus 21-3-2017 ds vkns'k dh oS/krk] fofèkekU;rk vkSj vkSfpR; dh tk¡p d ¢ iz;kstu ds fy, lqlaxr gSA blds vfrfjDr] lu~ 2012 ds fu;eksa dk fu;e 103 Hkh egRoiw.kZ gSA , vkb vkj 1968 ,l lh 377] ,y vkj 1958 , lh 41 ¾ ¼1957½ 3 MCY;w ,y vkj 663] ¼1977½ 4 ,l lh lh 471 ¾ ¼1978½ 1 ,l lh vkj 641] ¼1990½ 3 ,l lh lh 223] ¼1994½ 4 ,l lh lh 651] ¼2022½ 2 ,l lh lh vkWuykbu ,e ih 5387] ¼2005½ 13 ,l lh lh 495] 2019 ¼2½ ,e ih ,y ts 668] vkb ,y vkj 2007 ,e ih 474] ¼2000½ 4 ,l lh lh 357] 2007 ¼2½ ,e ih ,p Vh 380] ¼2022½ 2 ,l lh lh vkWuykbu ,l lh 1737 rFkk ¼2022½ 2 ,l lh lh vkWuykbu 151 fufnZ"VA ¼iSjk 62
¼3½ uxj rFkk xzke fuos'k vf/kfu;e] 1973 ¼e-iz-½ && /kkjk 15 rFkk 16 ¼1½] ijarqd && vuqKk dc visf{kr ugha && vuqKk ds fcuk Hkwfe ds mi;ksx esa ifjorZu ugha fd;k tk ldrk ijarq tc Ñf"k iz;kstuksa ds fy, Hkwfe dk mi;ksx ifjofrZr fd;k tkrk gS rc vuqKk dh vko';drk ughaA vkb ,y vkj 2007 ,e ih 474 rFkk 2007 1/421/2 ,e ih ,p Vh 380 voyafcrA ¼iSjk 60
¼4½ mPp U;k;ky; ¼[kaM U;k;ihB dks vihy½ vf/kfu;e] 2005 ¼e-iz-½ èkkjk 2 ¼1½ && e- iz- Hkwfe fodkl fu;e] 2012 && fu- 103 && HksM+k?kkV fodkl ¼izk:i ;kstuk½] 2021 && [kaM 7-2 rFkk 7-17 && lu~ 2005 ds vf/kfu;e dh /kkjk 2 ¼1½ ds vèkhu vihy && fjV U;k;ky; us izk:i ;kstuk ds [kaM 7-17 ds ifj.kke vkSj izHkko rFkk fu;e 103 ds egRo ij fopkj fd, fcuk] izk:i ;kstuk ds [kaM 7-2 ds vkèkkj ij vfHkfu/kkZfjr fd;k fd HksM+k?kkV ifj;kstuk {ks= dks lu~ 2012 d¢ fu;e ykxw ugha gksrs && fjV U;k;ky; us gLr{ksi dj =qfV dh && fjV U;k;ky; dk vkns'k vikLr fd;k x;k && fjV ;kfpdk Øekad 6880@2017 [kkfjt dh xbZ && fjV vihy eatwjA
vfHkfu/kkZfjr % vfHkfu/kkZfjr % fu;e 103 esa izkaty 'kCnksa esa Li"V fd;k x;k gS fd ;kstuk {ks= esa ykxw ^ekud* vkSj ^fofu;eu* lacaf/kr fodkl ;kstuk esa fofgr [kaMksa ij fuHkZj gSaA lu~ 2012 ds fu;eksa dks] tgk¡ rd ;kstuk {ks= esa muds ykxw gksus dk laca/k gS] ;Fkko';d ifjorZuksa lfgr vfHkx`ghr dYiuk ds :i esa mikarfjr fd;k x;k gSA izk:i ;kstuk ds [kaM 7-2] 7-17 rFkk lu~ 2012 ds fu;eksa ds fu;e 103 ds lexz#is.k ikB ls nf'kZr gksrk gS fd fo}ku ljdkjh vf/koDrk ds bl rdZ esa i;kZIr cy gS fd Hkwfe mi;ksx ds ifjorZu dh bZIlk ds vkosnuksa dks ukeatwj djus dk fofu”p; bu ekinaMksa ij Fkk vkSj ;s lHkh ekinaM fo}ku fjV U;k;ky; d¢ /;ku ls pwd x,A ¼iSjk 63
;fn fjV U;k;ky; ds le{k Hkwfe mi;ksx ifjorZu dh vuqKk nsus ls budkj djus ds vkns'k ^izk:i ;kstuk* vkSj lu~ 2012 ds fu;eksa ds vuq:i Fks] rks ;g U;k;ky; mUgsa fo{kqC/k djus ds fy, ck/; ugha gSA gekjh jk; esa] fo}ku fjV U;k;ky; us vk{ksfir vkns'kksa esa dsoy bl dkj.k gLr{ksi dj xyrh dh gS fd [kaM 7-2 ds vuqlkj lu~ 2012 ds fu;e lkekU;r% ykxw ugha gksrsA ;g lgh gS fd HksM+k?kkV dk {ks= vf/klwpuk fnukad 26-12-2012 dk Hkkx ugha gS] rFkkfi ;g Hkh rF; gS fd HksM+k?kkV ds fy, izk:i ;kstuk vfèkfu;e dh /kkjk 15 rFkk 16 ds vuqlkj vfLrRo esa vkbZ gSA bls n`f"V ls vks>y ugha fd;k tk ldrk fd /kkjk 16 esa varfuZfgr fo/kk;h vkKk ^Hkwfe mi;ksx dks fLFkj j[kus* ds iz;kstu ds fy, gSA 2018 ¼1½ jk-fu- 76 mYVk x;kA ¼iSjk 66
¼5½ ;kstuk && HksM+k?kkV fodkl ¼izk:i ;kstuk½ 2021 && [kaM 7-17 && funs'kkRed izd`fr && bls funs'kkRed izd`fr dk ekuus ij Hkh] ;fn izR;FkhZx.k us [kaM 7-17 ds n`f"Vdks.k ls lu~ 2012 ds fu;eksa dk /;ku j[kk gS rks izR;FkhZx.k ds iz;ksx esa dksbZ =qfV ughaA ¼2005½ 13 ,l lh lh 495] ¼2005½ 5 ,l lh lh 181 rFkk ¼2002½ 3 ,l lh lh 496 fufnZ"VA ¼iSjk 64 rFkk 65
¼6½ izFkk && mica/k dk mYys[k ugha djuk ;k xyr mYys[k djuk && 'kfDr dk lzksr vU;Fkk ewy dkuwu ls [kkstk tk ldrk gks rks vkns'k dks voS/k ugha cukrkA ¼2014½ 12 ,l lh lh 278] ¼2007½ 13 ,l lh lh 255 rFkk ¼2009½ 9 ,l lh lh 173 fufnZ"VA ¼iSjk 70 ,oa 71
¼7½ Hkkjr dk lafo/kku && vuq- 14 && foHksn && fjV ;kfpdk esa ;g igyw ugha mBk;k x;k && varorhZ vkosnu izLrqr dj bl ij fo'ks"k cy nsuk pkgk && fjV U;k;ky; ds le{k bl igyw ds fdlh vk/kkj ds vHkko esa fjV U;k;ky; dks bl ij fopkj djus dk volj ugha Fkk && fjV U;k;ky; dk vkns'k Hkh foHksn ij vk/kkfjr ugha && foHksn dk iz'u ugha curkA ¼1977½ 1 ,l lh lh 35] ¼2007½ 8 ,l lh lh 249] ¼2011½ 3 ,l lh lh 436] ¼2019½ 8 ,l lh lh 587 rFkk ¼2020½ 3 ,l lh lh 311 fufnZ"VA ¼iSjk 78

(1) Uchcha Nayayalaya (Khand Nayayapeeth Ko Appeal) Adhiniyam, 2005 (M. P.) -- S. 2 (1) -- maintainability of appeal -- two different orders passed by Commissioner in two different appeals of coloniser and land owner -- Commissioner was not final authority -- his subsequent and different order passed in case of land owner became subject matter of revision by State Government -- was quashed by State Government -- final order of State Government called in question in connected writ petition -- different view taken by Commissioner fades into insignificance in teeth of order of apex authority/State Government -- writ appeal cannot be thrown for this reason. [Para 43

(2) Nagar Tatha Gram Nivesh Adhiniyam, 1973 (M. P.) -- Ss. 14, 15, 16, 18 and 19 -- M. P. Bhumi Vikas Rules, 2012 -- R. 103 -- Bhedaghat Development (Draft Plan), 2021 -- Cls. 7.2 and 7.17 -- applicability of Rules of 2012 -- though Bhedaghat not included in planning areas notified under Rules of 2012 and as per Cl. 7.2 of Draft Plan, Rules of 2012 not applicable -- but as per rule 103 of Rules, 2012 and Cl. 7.17 of Draft Plan, Rules of 2012 are applicable to Bhedaghat Planning area.

Held : In general, made it clear that Rules of 2012 were not made applicable. In order to take care of special features of Bhedaghat, clause 7.17 was inserted in the Bhedaghat Development (Draft) Plan. As noticed above, learned Single Judge has based its order solely on clause 7.2 of the Draft Plan. A careful reading of clause 7.2 also shows that although Rules of 2012 were not specifically notified by including Bhedaghat in the ‘planning area’, it further provides that the rules mentioned in the Development Draft Plan shall be applicable and shall form part of the development plan. [Para 47

Indisputably, learned Single Judge has not considered the effect and impact of clause 7.17 and therefore, we find substance in the argument of learned Govt. Advocate that this clause is relevant for the purpose of examining the legality, validity and propriety of the order dated 21.3.2017 which became subject matter of challenge before the Writ Court. In addition, Rule 103 of Rules of 2012 is also significant. AIR 1968 SC 377, LR 1958 AC 41 = (1957) 3 WLR 663, (1977) 4 SCC 471 = (1978) 1 SCR 641, (1990) 3 SCC 223, (1994) 4 SCC 651, (2022) SCC Online MP 5387, (2005) 13 SCC 495, 2019 (2) MPLJ 668, ILR 2007 MP 474, (2000) 4 SCC 357, 2007 (2) MPHT 380, (2022) SCC Online SC 1737 and (2022) SCC Online 151 referred to. [Para 62

(3) Nagar Tatha Gram Nivesh Adhiniyam, 1973 -- Ss. 15 and 16 (1), proviso -- permission when not required -- use of land cannot be changed without permission but when use of land is changed for agricultural purposes then permission not needed. ILR 2007 MP 474 and 2007 (2) MPHT 380 relied on. [Para 60

(4) Uchcha Nayayalaya (Khand Nyayapeeth Ko Appeal) Adhiniyam, 2005 (M. P.) -- S. 2 (1) -- M. P. Bhumi Vikas Rules, 2012 -- R. 103 -- Bhedaghat Development (Draft Plan), 2021 -- Cls. 7.2 and 7.17 -- scope of appeal -- appeal under section 2 (1) of Act, 2005 -- without considering effect and impact of Cl. 7.17 of Draft Plan and significance of rule 103, writ Court held on basis of Cl. 7.2 of Draft Plan that Rules of 2012 not applicable to Bhedaghat planning area -- writ Court committed error in interfering -- order of writ Court set aside -- W. P. No. 6880/2017 dismissed -- writ appeal allowed.

Held : Rule 103, in no uncertain terms, makes it clear that ‘norms’ and ‘regulations’ applicable in the plan area are dependent upon the clauses prescribed in the relevant development plan. The rules of 2012 as a fiction, deemed to have been modified mutatis mutandis in so far as their application to the plan area is concerned. The wholesome reading of clauses 7.2, 7.17 of Draft Plan and rule 103 of rules of 2012 shows that the argument of learned Govt. Advocate has substantial force that the decision to reject the applications seeking change of land use were on these parameters and all these parameters escaped notice of the learned writ Court. [Para 63

If orders before the writ Court declining permission to change land use were in consonance with the ‘Draft Plan’ and rules of 2012, this Court is under no obligation to disturb the same. The learned writ Court, in our opinion, committed an error while interfering with the impugned orders therein solely for the reason that Rules of 2012 are generally not applicable as per clause 7.2. The area of Bhedaghat may not be part of the notification dated 26.12.2012, fact remains that the ‘Draft Plan’ for Bhedaghat came into being as per sections 15 and 16 of the Adhiniyam. The legislative mandate ingrained in section 16 is for the purpose of ‘freezing of land use’ cannot be ignored. 2018 (1) RN 76 overruled. [Para 66

(5) Scheme -- Bhedaghat Development (Draft Plan), 2021 -- Cl. 7.17 -- directory nature -- even assuming it to be directory in nature, if respondents have taken in to regard Rules of 2012 in light of Cl. 7.17, no fault can be found in exercise of respondents. (2005) 13 SCC 495, (2005) 5 SCC 181 and (2002) 3 SCC 496 referred to. [Paras 64 & 65

(6) Practice -- non-mentioning or wrong mentioning of provision -- will not make order illegal if source of powers can be otherwise traced from parent statute. (2014) 12 SCC 278, (2007) 13 SCC 255 and (2009) 9 SCC 173 referred to. [Paras 70 & 71

(7) Constitution of India -- Art. 14 -- discrimination -- this aspect not raised in writ petition -- sought to be highlighted by filing interlocutory application -- writ Court had no occasion to consider this aspect in absence of any foundation before writ Court -- order of writ Court also not based on discrimination -- no question of discrimination made out. (1977) 1 SCC 35, (2007) 8 SCC 249, (2011) 3 SCC 436, (2019) 8 SCC 587 and (2020) 3 SCC 311 referred to. [Para 78