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IN THE HIGH COURT OF MADHYA PRADESH
(FULL BENCH)
Hemant Gupta, CJ, Vijay Kumar Shukla and Sanjay Dwivedi, JJ.
Nitesh Rathore and another v. State of M.P. and others
Miscellaneous Petitions No. 1850 of 2018, 1852 of 2018, 1853 of 2018, 1985 of 2018, 1987 of 2018, 2012 of 2018, 2013 of 2018, 2017 of 2018, 2020 of 2018, 2022 of 2018, 2030 of 2018, 2165 of 2018, 2408 of 2018, 2817 of 2018, 2819 of 2018, 2820 of 2018, 2821 of 2018, 2856 of 2018, 2941 of 2018, 3223 of 2018, 3304 of 2018 and 3305 of 2018 with Writ Petitions No. 8970 of 2018, 14225 of 2018 and 14230 of 2018 (Jabalpur); Decided on 20.9.2018
(2) Minor Mineral Rules, 1996 (M. P.) -- R.53 (as substituted on 18.5.2017) -- M. P. Land Revenue Code, 1959 -- S.247(7) (as amended on 30.12.2011) -- incidence of penalty in both provisions is different. [Para 16
(3) Minor Mineral Rules, 1996 (M. P.) -- R. 53(1) -- complete discretion to forfeit in one case and to impose penalty in another case -- would suffer from vice of arbitrariness -- forfeiture can be resorted to only when penalty is not paid. (1973)3 SCC 428, (1984)4 SCC 612 and (2009)16 SCC 208 followed. [Para 33
(4) Minor Mineral Rules, 1996 (M.P.) -- R.53 (as substituted on 18.5.2017) -- M. P. Mineral (Prevention of Illegal Mining, Transportation and Storage) Rules, 2006 -- R. 18(5) -- Mines and Minerals (Development & Regulation) Act, 1957 -- S.15 r/w 23C -- M. P. Land Revenue Code, 1959 -- S.247(7) (as amended on 30.12.2011) -- R.53 of Rules, 1996 as amended on 18.5.2017 is valid - Rules, 1996 and Rules, 2006 neither contradict S.247 (7) of Code, 1959 nor suffer from any other vice of illegality -- prosecution under Rules, 2006 is in addition to penalty in terms of S.247 (7) of Code -- penalty under Rules, 1996 is in addition to prosecution under Rules, 2006 or penalty under section 247(7) of Code
-- violator has to volunteer and seek compounding before serving notice of penalty in terms of R.53(2) -- vehicle is included in expression "other materials" in R.53(6) -- forfeiture in terms of R.53(3) (a) can be resorted to only when penalty in terms of R. 53(1) is not paid.
Held: Having answered the questions framed, the conclusions can be summarized as under :
i) The M. P. Minor Mineral Rules, 1996 or the M. P. Mineral (Prevention of Illegal Mining, Transportation and Storage) Rules, 2006 are the rules made by the State Government in exercise of the powers vested in the State Government in terms of the Mines and Minerals (Development and Regulation) Act, 1957. Such Rules neither contradict sub-section (7) of section 247 of the M. P. Land Revenue Code, 1959 nor suffer from any other vice of illegality.
ii) The M. P. Mineral (Prevention of Illegal Mining, Transportation and Storage) Rules, 2006 provide for prosecution in respect of transportation and storage of minerals including minor minerals but such prosecution is in addition to penalty to be imposed in terms of sub-section (7) of section 247 of the Code in respect of illegal extraction or removal of minerals.
iii) The M. P. Minor Mineral Rules, 1996 provide for penalty for extraction or transportation of minor minerals, which is in addition to the prosecution under the M. P. Mineral (Prevention of Illegal Mining, Transportation and Storage) Rules, 2006 or the penalty to be imposed under sub-section (7) of section 247 of the Code.
iv) The penalty relating to royalty amount in terms of rule 53 of the 1996 Rules is legal and valid till such time it does not exceed four times (as amended by M. P. Act No. 42 of 2011 w.e.f. 30.12.2011) of the market value of the minor mineral extracted. The extraction or removal of minerals other than minor mineral shall continue to attract penalty in terms of sub-section (7) of section 247 of the Code.
v) The penalties and forfeiture of minerals, machines, tools, vehicles etc. under rule 53 of the 1996 Rules, in all other respects, except in respect of illegal extraction or removal of minor minerals, which are covered by sub-section (7) of section 247 of the Code, shall be applicable without any condition.
vi) The benefit to seek compounding has to be exercised before serving a notice of imposition of penalty in terms of sub-rule (2) of rule 53 of 1996 Rules or in the event of seizure of tools, machines, vehicles and other material in terms of sub-rule (3) of rule 53 of the 1996 Rules. The competent authority is not required to give any option to the violator to seek compounding of violation of the Rules but the violator himself has to volunteer and seek compounding.
vii) The vehicle is included in the expression "other materials" in the last line of sub-rule 6 of rule 53. Still the omission to use the "vehicle" specifically in the last line of sub-rule (6) is meaningless and unintentional.
viii) The forfeiture of mineral or tools, machines and vehicles cannot be resorted to without giving an opportunity to the violator to pay penalty in terms of sub-rule (1) of rule 53 of the 1996 Rules. Similarly, the forfeiture of seized tools, machines and vehicles etc. in terms of clause (a) of sub-rule (3) of rule 53 can be resorted to only when penalty in terms of sub-rule (1) of rule 53 is not paid.
ix) In case of the vehicles transporting or extracting mineral without any transit pass in terms of clause (b) of sub-rule (3) of rule 53, the forfeiture can be ordered after three defaults whereas, in case of other situations, the forfeiture can be ordered after four defaults.
x) The violator would be liable to be criminally prosecuted in respect of minerals including the minor minerals in terms of the 2006 Rules whereas in terms of rule 53 of the 1996 Rules, the violator will be liable to pay penalty, which is distinct from the criminal proceedings.
(1980)1 SCC 370 and (2017)15 SCC 133 followed. Writ Petition No.20686 of 2017 decided on 25.4.2018 and Writ Petition (PIL) No. 2592 of 2006 decided on 12.5.2015 overruled. (2004)3 SCC 609 and Writ Petition No. 18818 of 2017 decided on 15.2.2018 referred to. [Paras 7 & 36
¼1½ fof/k dk fuoZpu && ,d gh fo/kku&eaMy ds nks dkuwuksa ds mica/kksa dk lkeatL;iw.kZ ikB fd;k tkuk gksrk gS 7 && lkeatL;iw.kZ ikB vuqKs; ugha gks rks && i'pkr~orhZ dkuwu iwoZorhZ fof/k ds fujlu dh dksfV esa vk,xkA , vkb vkj 1963 ,l lh 1561 rFkk ¼1990½4 ,l lh lh 406 vuqlfjrA ¼iSjk 10 ¼2½ xkS.k [kfut fu;e] 1996 ¼e-iz-½ && fu&53 ¼18&5&2017 dks ;Fkk izfrLFkkfir½ && e-iz- Hkw&jktLo lafgrk] 1959 && /kkjk 247¼7½ ¼30&12&2011 dks ;Fkk la'kksf/kr½ && nksuksa mica/kksa esa 'kkfLr dk vkiru fHkUu gSA ¼iSjk 16 ¼3½ xkS.k [kfut fu;e] 1996 ¼e-iz-½ && fu&53¼1½ &&,d ekeys esa leiâr djus vkSj vU; ekeys esa 'kkfLr vf/kjksfir djus dk iw.kZ foosdkf/kdkj && euekuh ds nks"k ls xzLr gksxk && leigj.k dk vkJ; dsoy rc fy;k tk ldrk gS tc 'kkfLr lanÙk ugha dh tk,A ¼1973½3 ,l lh lh 428] ¼1984½4 ,l lh lh 612 rFkk ¼2009½16 ,l lh lh 208 vuqlfjrA ¼iSjk 33 ¼4½ xkS.k [kfut fu;e] 1996 ¼e-iz-½ && fu&53 ¼18&5&2017 dks ;Fkk izfrLFkkfir½ && e-iz- [kfut ¼voS/k [kuu] ifjogu ,oa HkaMkj.k dk fuokj.k½ fu;e] 2006 && fu&18¼5½ && [kku ,oa [kfut ¼fodkl ,oa fofu;eu½ vf/kfu;e] 1957 && /kkjk 15 lgifBr /kkjk 23x && e-iz- Hkw&jktLo lafgrk] 1959 && /kkjk 247¼7½ ¼30&12&2011 dks ;Fkk la'kksf/kr½ && 18&5&2017 dks ;Fkk la'kksf/kr 1996 ds fu;eksa dk fu&53 fofèkekU; gS && 1996 ds fu;e vkSj 2006 ds fu;e u lafgrk dh /kkjk 247¼7½ ds izfrdwy gSa vkSj u voS/krk ds fdlh vU; nks"k ls xzLr gSa && 2006 ds fu;eksa ds vèkhu vfHk;kstu lafgrk dh /kkjk 247¼7½ ds fuca/kukuqlkj 'kkfLr ds vfrfjDr gS && 1996 ds fu;eksa ds v/khu 'kkfLr 2006 ds fu;eksa ds v/khu vfHk;kstu vFkok lafgrk dh /kkjk 247¼7½ ds v/khu 'kkfLr ds vfrfjDr gS && vfrØe.kdrkZ dks fu&53¼2½ ds vuqlkj 'kkfLr dh lwpuk dh rkehy ds iwoZ LosPN;k iz'keu dh bZIlk djuk gksxh && fu&53¼6½ esa vfHkO;fä ßvU; lkexzhÞ esa ;ku lfEefyr gS && fu&53¼3½¼d½ ds vuqlkj leigj.k dk vkJ; dsoy rc fy;k tk ldrk gS tc fu&53¼1½ ds vuqlkj 'kkfLr lanÙk ugha dh xbZ gksA vfHkfu/kkZfjr% fojfpr iz'uksa dk mÙkj nsus ds i'pkr~ fu"d"kks± dk lkj fuEukuqlkj fn;k tk ldrk gS % 1½ e-iz- xkS.k [kfut fu;e] 1996 vFkok e-iz- [kfut ¼voS/k [kuu] ifjogu ,oa HkaMkj.k dk fuokj.k½ fu;e] 2006] [kku ,oa [kfut ¼fodkl ,oa fofu;eu½ vfèkfu;e] 1957 ds vuqlkj jkT; ljdkj esa fufgr 'kfä iz;qDr dj jkT; ljdkj }kjk cuk, x, fu;e gSaA ;g fu;e u e-iz- Hkw&jktLo lafgrk] 1959 dh /kkjk 247 dh mi/kkjk ¼7½ ds izfrdwy gSa vkSj u voS/krk ds fdlh vU; nks"k ls xzLr gSaA 2½ e-iz- [kfut ¼voS/k [kuu] ifjogu ,oa HkaMkj.k dk fuokj.k½ fu;e] 2006 esa [kfutksa ds] ftlesa xkS.k [kfut lfEefyr gSa] ifjogu vkSj HkaMkj.k ds ckjs esa vfHk;kstu micaf/kr gS ijarq ;g vfHk;kstu [kfutksa ds voS/k mR[kuu ;k gVk, tkus ds ckjs esa lafgrk dh /kkjk 247 dh mi/kkjk ¼7½ ds vuqlkj vf/kjksfir dh tkus okyh 'kkfLr ds vfrfjDr gSA 3½ e-iz- xkS.k [kfut fu;e] 1996 esa xkS.k [kfutksa ds mR[kuu ;k ifjogu ds fy, 'kkfLr micaf/kr gS] tks e-iz- [kfut ¼voS/k [kuu] ifjogu ,oa HkaMkj.k dk fuokj.k½ fu;e] 2006 ds v/khu vfHk;kstu vFkok lafgrk dh /kkjk 247 dh mi/kkjk ¼7½ ds v/khu vf/kjksfir dh tkus okyh 'kkfLr ds vfrfjDr gSA 4½ 1996 ds fu;eksa ds fu;e 53 ds vuqlkj LokfeRo dh jkf'k ls lacafèkr 'kkfLr ml le; rd oS/k vkSj fof/kekU; gS tc rd og mR[kfur xkS.k [kfut ds cktkj ewY; ds pkj xquk ¼30&12&2011½ ls izHkkoh e-iz- vfèkfu;e Ø- 42 lu~ 2011 }kjk ;Fkk la'kksf/kr½ dk vf/kd ugha gSA xkS.k [kfut ds vykok vU; [kfutksa ds mR[kuu ;k gVk, tkus ij lafgrk dh èkkjk 247 dh mi/kkjk ¼7½ ds vuqlkj 'kkfLr vkÑ"V gksrh jgsxhA 5½ 1996 ds fu;eksa ds fu;e 53 ds v/khu 'kkfLr;ksa vkSj [kfutksa] ;a=ksa] vkStkjksa] ;kuksa vkfn dk leigj.k] xkS.k [kfutksa ds voS/k mR[kuu ;k gVk, tkus dks NksM+ dj tks lafgrk dh /kkjk 247 dh mi/kkjk ¼7½ }kjk vPNkfnr gSa] loZFkk fcuk 'krZ ykxw gksaxsA 6½ iz'keu dh bZIlk ds Qk;ns dk iz;ksx 1996 ds fu;eksa ds fu;e 53 ds mifu;e ¼2½ vuqlkj 'kkfLr ds vf/kjksi.k dh lwpuk dh rkehy ds iwoZ vFkok 1996 ds fu;eksa ds fu;e 53 ds mifu;e ¼3½ ds vuqlkj vkStkjksa] ;a=ksa] ;kuksa rFkk vU; lkexzh dh tCrh dh n'kk esa fd;k tkuk gksrk gSA fu;eksa ds vfrØe.k ds iz'keu dh bZIlk djus dk fodYi vfrØe.kdrkZ dks nsuk l{ke izkf/kdkjh ls visf{kr ugha gS] vfirq vfrØe.kdrkZ dks Lo;a LosPN;k iz'keu dh bZIlk djuk gksxhA 7½ fu;e 53 ds mifu;e 6 dh ds vafre okD;ka'k esa vfHkO;fä ßvU; lkexzhÞ esa ;ku lfEefyr gSA fQj Hkh] mifu;e ¼6½ ds vafre okD;ka'k esa fofufnZ"Vr% ß;kuÞ dk mi;ksx djus dk yksi egRoghu vkSj vutkus esa fd;k x;k gSA 8½ vfrØe.kdrkZ dks 1996 ds fu;eksa ds fu;e 53 ds mifu;e ¼1½ ds fucaèkukuqlkj 'kkfLr lanÙk djus dk volj fn, fcuk vkStkjksa] ;a=ksa vkSj ;kuksa ds leigj.k dk vkJ; ugha fy;k tk ldrkA blh izdkj] fu;e 53 ds mifu;e ¼3½ ds [kaM ¼d½ ds fuca/kukuqlkj tCr vkStkjksa] ;a=ksa vkSj ;kuksa ds leigj.k dk vkJ; dsoy rc fy;k tk ldrk gS tc fu;e 53 ds mifu;e ¼1½ ds fuca/kukuqlkj 'kkfLr lanÙk ugha dh xbZ gksA 9½ fu;e 53 ds mifu;e ¼3½ ds [kaM ¼[k½ ds fuca/kukuqlkj fdlh vfHkogu ikl ds fcuk [kfut ifjogu ;k mR[kuu djus okys ;kuksa ds ekeys esa leigj.k rhu O;frØeksa ds i'pkr~ vknsf'kr fd;k tk ldrk gS 10½ 2006 ds fu;eksa ds fuca/kukuqlkj [kfutksa ds laca/k esa] ftuesa xkS.k [kfut lfEefyr gSa] vfrØe.kdrkZ nkafMd vfHk;kstu ds nkf;Rok/khu gksxk tcfd 1996 ds fu;eksa ds fu;e 53 ds fuca/kukuqlkj vfrØe.kdrkZ 'kkfLr lanÙk djus ds nkf;Rokèkhu gksxk] tks nkafMd dk;Zokgh ls lqfHkUu gSA ¼1980½1 ,l lh lh 370 rFkk ¼2017½15 ,l lh lh 133 vuqlfjrA fjV ;kfpdk Ø& 20686 lu~ 2017 fu.khZr fnukad 25&4&2018 rFkk fjV ;kfpdk ¼yksdfgr eqdnek½ Ø& 2592 lu~ 2006 fu.khZr fnuakd 12&5&2015 myVs x,A ¼2004½3 ,l lh lh 609 rFkk fjV ;kfpdk Ø& 18818 lu~ 2017 fu.khZr fnukad 15&2&2018 fufnZ"VA ¼iSjk 7 ,oa 36
Gupta, CJ.--1. The challenge in the present bunch of petitions is to rule 53 of the M.P. Minor Mineral Rules, 1996 (for short “the 1996 Rules”) as substituted on 18.5.2017.
2. On 18.7.2018, the matter was referred to a Larger Bench doubting the correctness of a Division Bench order of this Court passed on 25.4.2018 in Writ Petition No. 20686/2017 (Nihal Khan v. State of M.P.). The order dated 18.7.2018 reads as under :
“Learned counsel for the petitioners argued that rule 53 of the M.P. Minor Minerals Rules, 1996 (for short ‘the Rules’) as substituted on 18.5.2017 contemplates imposition of penalty in respect of illegal mining and transportation in a graded manner in terms of sub-rule (1) of rule 53 of the Rules.
Sub-rule (2) of rule 53 of the Rules deals with forfeiture of minerals in cases of illegal extraction and transportation. It contemplates that the seized minerals shall not be discharged till the penalty as contemplated in sub-rule (1) is not paid. It is thus argued that the forfeiture will not follow, if the penalty in terms of sub-rule (1) is paid. Only in the event of failure to pay penalty in terms of sub-rule (1), the forfeiture can be affected in terms of sub-rule (1).
Sub-rule (3) of the Rules deals with forfeiture/discharge of the seized machines, tools and vehicles. Sub-rule (3)(a) contemplates that the tools, machines, vehicles and other material so seized shall not be discharged till the penalty imposed in terms of sub-rule (1) is paid. It is only thereafter, forfeiture can be affected. Sub-rule (3)(b) is in respect of mineral extracted or transported without any transit pass, which again has to be dealt with in the same manner i.e. after imposition of the penalty four times in terms of rule 53(1) of the Rules, there can be forfeiture. Second Proviso in fact permits the vehicles to be forfeited on 24 connected matters fourth default as against the penalty which is payable even on fourth default in terms of sub-rule (1).
It is contended that the forfeiture cannot be resorted to at the first instance without imposition of penalty in terms of sub-rule (1) either in the case of mineral or in the case of machines, tools and vehicles. It is argued that the order of this Court in Writ Petition No. 20686/2017 (Nihal Khan v. The State of M.P.) decided on 25.4.2018, has not noticed the Scheme of the Rules in a correct perspective.
On the other hand, Mr. Yadav argued that the Competent Authority has a liberty to either forfeit or to impose penalty. Therefore, on account of illegal extraction and transportation of mineral, there can be forfeiture.
We are doubtful about the arguments by Shri Yadav raised. There cannot be total discretion to the Competent Authority to impose penalty in his choice or to resort to forfeiture as per his discretion.
We find that the view taken by this Court on 25.4.2018 in Nihal Khan’s case (supra), requires reconsideration. Therefore, we deem it appropriate to refer these matters to a Larger Bench.
List before the Larger Bench on 8.8.2018.
The State may file reply in the meantime, if chooses so. Interim order to continue.”
3. We find that the following questions arise for the opinion of this Court :
(1) Whether the State Government is competent to frame M.P. Minor Mineral Rules, 1996 (for short “the 1996 Rules”) in view of the provisions of Sub-section (7) of section 247 of the M.P. Land Revenue Code, 1959 (for short “the Code”)?
(2) Whether the 1996 Rules, as amended on 18.5.2017, are legal and valid in the face of M.P. Mineral (Prevention of Illegal Mining, Transportation and Storage) Rules, 2006 (for short “the 2006 Rules”), as both have been enacted by the State Government in exercise of the powers conferred on it under the Mines and Minerals (Development and Regulation) Act, 1957 (No.67 of 1957) (for short “the Central Act”)?
(3) Whether the option of compounding is available to the violator during pendency of the proceedings before the Collector and/or in appeal or at
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