GOVT. OF NCT OF DELHI Vs ANAND ARYA .
Bench: T.S. THAKUR,A.K. SIKRI,R. BANUMATHI
Case number: C.A. No.-000888-000888 / 2016
Diary number: 41139 / 2015
Advocates: CHIRAG M. SHROFF Vs
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REPORTABLE
IN THE SUPREME COURT OF INDIA
CIVIL APPELLATE JURISDICTION
CIVIL APPEAL NO. 888 OF 2016 (ARISING OUT OF S.L.P. (CIVIL) NO. 35037 OF 2015)
GOVT. OF NCT OF DELHI AND ANR. .....APPELLANT(S)
VERSUS
ANAND ARYA AND ORS. .....RESPONDENT(S)
WITH
CIVIL APPEAL NO. 889 OF 2016 (ARISING OUT OF S.L.P. (CIVIL) NO. 35038 OF 2015)
J U D G M E N T
A.K. SIKRI, J.
Notice, returnable forthwith.
2) Respondent Nos. 1 and 2 (hereinafter referred to as the
“respondents”), who are the real contesting respondents, have
appeared on Caveat and accepted notice. Keeping in view the
nature of order which we propose to pass in these appeals, it was
not found necessary to serve other respondents. Insofar as
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counsel for the appellants as well as counsel for the respondents
are concerned, they were ready to argue the matter finally.
Accordingly, we heard the matter finally at this stage itself.
3) Leave granted in both these matters.
4) The appellants in these two appeals are Government of NCT of
Delhi and Delhi Transport Corporation respectively. They feel
aggrieved by the orders dated October 20, 2015 passed by the
High Court of Delhi in CM No. 12299 of 2015 in Writ Petition
(Civil) No. 5481 of 2011. In order to have a glimpse of the
controversy, we may state that the matter pertains to the
construction of Bus Depot by the appellants on an area situated
next to Nizamuddin Bridge and behind I.P. Power Station. Writ
Petition (Civil) No. 5481 of 2011 was disposed of by the High
Court vide orders dated September 13, 2015. It was found that
as per the Master Plan 2021 (MPD 2021) for Delhi the aforesaid
Bus Depot, popularly known as Millennium Bus Depot, was
shown as “river flood plain” and on such are no construction could
be carried out as per MPD 2021. The High Court, however, gave
six months' time to the authorities to change the Master Plan, as
per law, if the same was permissible, failing which the Millennium
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Bus Depot was to be removed from the site. This has not
happened, though the order of the High Court is dated September
13, 2012. The DTC filed an application for extension of time , i.e.,
CM No. 12299 of 2015. By the impugned order dated October
20, 2015, the High Court has rejected the prayer for extension of
time and dismissed the application. It is this order which is the
subject matter of the instant appeals.
5) The matter has some history. In order to appreciate the position
taken by the parties on the either side, it would be necessary to
traverse the historical trajectory. As we unfold the events that
have taken place, the narration thereof would not only reflect the
position taken by the parties on either side, some of the answers
which apparently flow from these facts would also automatically
become available. For these reasons, we take note of these
events that are material for these appeals but avoiding
unnecessary details at the same time.
6) As is clear from the glimpse of the lis mentioned above, the
appellants have constructed Millennium Bus Depot at the site in
question. As per the respondents, the site is river flood plain and
as per Master Plan – 2021, no construction can be carried out on
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such an area. The area in question is next to Nizamuddin Bridge
and behind I.P. Power Station and falls in Sub-Zone-06, Zone-O,
between Nizamuddin Railway Bridge and National Highway-24
measuring 390 hectares. This prompted the respondents to file
Writ Petition (Civil) No. 5481 of 2011 by way of Public Interest
Litigation. The petition was filed at a time when the construction
was still underway. The respondents wanted stay of construction
as well. However, no such interim prayer was granted. By the
time the matter came up for final hearing, the construction had
been completely carried out and DTC Bus Depot had started
functioning therefrom. Under these circumstances, the
respondents pressed their relief for demolition of the construction
and restoration of area in its original condition.
7) It was averred by the respondents that the construction in
question amounted to encroachment on river flood plain/river front
resulting a change in the land use. It was also stated that as per
the Master Plan, the area is earmarked for recreation purposes on
the West Bank (Clause 9.2.1). It was pointed out that Draft Zonal
Plan of the area was published in July, 2008 for the purpose of
inviting objections. The Zonal Plan has specified the land use of
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the River and confirmed that it would be only for recreational use
such as Biodiversity Park, Botanical Park, Forest etc. which would
help in regenerating the environment. The respondents also
pointed out that the DDA vide its communication dated December
2, 2010 in response to RTI query had confirmed that a 6 hectares
strip of land between Akshardham Complex and the
Commonwealth Games Village was indeed designated as
'Parking' in the approved lay out plan. The Delhi Urban Art
Commission (hereinafter referred to as 'the DUAC') after its
inspection carried out on November 02, 2010 had directed both
the DDA and the DTC to vacate the river bed and to ensure the
removal of all the constructions carried out in the past. Even the
Shunglu Committee which was set up to go into the conduct of
Commonwealth Games-2010 had adversely commended upon
the construction of the said structure and in its report by observing
as under:-
“All clearances were provided by the Lieutenant Governor for construction of a 'temporary' structure which was ostensibly to be dismantled after the conclusion of the Games. But this Project was implemented by the Transport Department, GNCTD and DTC right from the beginning as a 'permanent' structure. It appears as if the hosting of CWG provided a pretext for 'land grab' by various Government agencies after short circuiting the established rules and procedures.”
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In its affidavit filed by the DUAC, it also categorically mentioned
that no proposal regarding the alleged construction was ever
referred to the DUAC at any time and no sanction or approval
was thus obtained. It was also mentioned that site was inspected
by the DUAC and thereafter matter was considered by the DUAC
in its meeting held on November 10, 2010.
In nutshell, the case set up by the respondents was that the
construction of Bus Depot is contrary to Master Plan; it would
affect the ecology and environment of the area; by ignoring the
same the appellants were violating the principle of Puyblic Trust,
principle of Sustainable Development, Polluter Pays Principle,
Principle of Inter-Generational Equity; and all this amounted to
infuriation of Articles 21, 48A, 51A of the Constitution.
8) The DTC and Delhi Government filed their respective affidavits
explaining that the land in question was allotted for the
development of a Bus Deport to be used during the
Commonwealth Games which where to be held in New Delhi in
October, 2010. The position taken by the DTC was that it was
imperative to have such a bus depot which was utilised for
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operating buses in the city of Delhi and almost 900 buses were
providing services from this Depot which was serving major bus
terminals. Since it was serving public purpose, there was
necessity for such a depot. At the same time, DTC also
accepted the position that as per Master Plan, the area was
shown as river bed and no such construction could be carried
our on river bed. In view of such a situation, it was stated in the
affidavit that the DTC vide letter dated November 09, 2010 had
requested the DDA for change of land use.
The public purpose was highlighted by stating that the
Millennium Park Bus Parking acts as a life line for nearly one
fourth of the bus commuters of Delhi. It caters to approximately
ten lakhs people every day and is immensely beneficial to lower
and middle class sections of society who cannot afford a means
of transport other than public bus service. Shutting down the
Millennium Park Bus Parking would deprive lakhs of people of
cheap and convenient bus service and would render jobless
nearly 2,000 employees of the DTC such a drivers, conductors,
mechanics, etc.
9) The DTC also denied that there is a construction on the flood
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plains of Yamuna River. As per the DTC, the Millennium Park
Bus is situated at a suitable distance from the river bund. It was
submitted that before development of the said land into a bus
depot, the same was used by the Indraprastha Thermal Power
Plant for dumping of residual fly-ash. Almost 20 meters of fly-ash
spared over many acres were leveled, compacted and covered
with granular sub base to enable the ground to bear the 13.5 ton
weight of each Low Floor Bus. Incidentally, a high tension
electricity transmission tower-which is an essential part of the
infrastructural needs of the city, is situated right in the center of
this area. The DTC also sought to project that no commercial
activity to the detriment of the ecological balance of the said land
or the Yamuna River is taking place as a result of the operation
of the bus depot. It emphasized that the DTC had spent an
amount of approximately 100 crores on the development of this₹
infrastructure.
10) An additional affidavit was filed by the DTC giving certain
material to support its contention that the scientific study
conducted by an expert body like NEERI recommended the area
in question for usage as parking space.
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11) After taking note of the respective stand of the parties the High
Court went into the question as to whether the aforesaid Bus
Depot could be constructed at the given site. It was found that
since there was no dispute that as per MPD-2021 the land use of
the site was shown as “River Water Body” on which construction
of the type carried out by the DTC was impermissible as law
mandates construction in conformity with the Master Plan.
Because of this reason the High Court disposed of the writ
petition by giving six months' time to the appellants to get the
Master Plan amended, if it was possible in law.
12) The flavour of the said order and the manner in which the writ
petition was disposed of can be gazed from paras 17 to 19
thereof, which we reproduce hereunder for sake of clarity:
“17. The moot question, however, is as to whether this Bus Depot could be constructed at the given site? The petitioners have sought to demonstrate that the construction is carried out at the place which forms part of flood plains/river built (sic - bed) and this id denied by the DTC/Government of NCT of Delhi. On the other hand, the respondents argue that it is not a river bed and having regard to previous user of the site for fly-ash for last number of years, use thereof as bus depot is appropriate, it is in public interest and no other suitable site is available or at least identified by DDA so far. We are, however, of the view that it may not be necessary even to go into these questions. The
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stark reality is that as per MPD-2021 the land use of the site is “River Water Body”. Admittedly, any construction has to be in conformity with the Master Plan. May be for this reason, when the land was allotted to the DTC to take care of the need of Commonwealth Games, it was for the purpose of 'temporary' parking, that too, in view of the security threat perceptions prevailing in the region. The Government was conscious of the fact that there cannot be a permanent Bus Depot without amendment of the Master Plan, 2021. It is for this reason, even during the argument, Mr. Waziri made a submission that the Government was planning to make modification in the Master Plan.
18. In view of the above, we are of the opinion that these petitions can be disposed of by permitting the respondents to take steps for amendment in the Master Plan, as per law, if it is permissible. There is a specific procedure for effecting the change in the Master Plan which includes notice to the public at large and inviting objections. Once this procedure is followed and objections are invited, it would be open to the petitioners to file their objections and raise issue of ecology and environment which will have to be considered. Thus, arguments raised before us by the petitioners in this behalf can be duly taken into consideration at that stage. Naturally, if there is any substance in the contention of the petitioners, it may not result change in the Master Plan. On the other hand, at that stage it will also be open to the respondents, particularly DTC, to put forth its case that the site in question was used as fly-ash purposes since 1960s and on the construction of bund, the area was segregated and, therefore, it is not going to have any impact on river built/flood plains. What we are emphasizing is that the respective contentions on this aspect can be considered and looked into and decision thereupon taken.
19. These petitions are accordingly disposed of by granting six months time to the respondents to take
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steps for the change in the Master Plan, if it is possible, thereby changing the land user and bringing it in conformity with the present use. In case, the Master Plan is amended in this manner, the natural consequence thereof would be that the Bus Depot would continue to operate from the given site. On the other hand, if attempt to amend the Master Plan fails, there would be no option to re-locate the Bus Depot to some other place. In that event, it will be for the DTC to ask the DDA to allot alternate site and feasibility of site at Mayur Vihar can also be considered at that stage.”
13) Following aspects are discernible from the aforesaid order:
(a) The construction of Millennium Bus Depot is on the land, which
according to MPD-2021 is shown as 'River Water Body'.
(b) Position in law is clear, on which there is no dispute, that any
construction has to be in conformity with the Master Plan.
(c) If the land use of the site in question is 'River Water Body' as per
MPD-2021, construction thereupon is not permissible and such
area cannot be used as Bus Depot.
(d) The DTC, however, contended that land site was wrongly shown as
'River Water Body' in the MPD 2021 as it was actually not so. It
contended that the previous user of the site was for fly-ash and
the argument of the appellants in the High Court was that it was
not a river bed and, therefore, same could be used as Bus
Depot, which user was in public interest. The respondents
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herein, on the other hand, contended that the user of the site as
Bus Depot was a threat to ecology and environment.
(e) Since as per the MPD-2021, the land use of the site is 'River Water
Body', on which construction was not permissible without
amendment of the Master Plan, the appellants conceded that in
order to continue the Bus Depot, amendment in the Master Plan
was needed.
14) Keeping in mind the aforesaid aspects, the High Court granted
six months time to the authorities to take steps for change in the
Master Plan, if it was possible in law, thereby changing the land
user and bringing it in conformity with the present use. It was
pointed out that the procedure that has to be followed for change
of Master Plan included giving opportunity to the respondents
herein to file their objections and raise the issue of ecology and
environment and for DTC to put forth its case that the site in
question was used as fly-ash purposes since 1960 and on
construction of the Bund the area was segregated and, therefore,
use of site as Bus Depot was not going to have any impact on
the river bed/flood plains. The purpose was, thus, to give an
opportunity to the appellants to establish that area could not be
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treated as 'river bed' and if that is proved, it could pave way for
change of MPD 2021.
15) There is no amendment in the MPD-2021 till date on the
aforesaid aspect and as per the said Master Plan, land use
remains the same, which has not been altered. The DTC has its
own explanation as it is contended that though steps were taken
by the DDA to change the land use, but it was taking time
because of the dispute that had arisen between DDA and the
Land and Development Office (L&DO) about the ownership of
the land in question. Be as it may, the Master Plan remains
unaltered.
16) Since time of six months granted by the High Court expired and
the consequence thereof was that as per the directions
contained in the order dated 13.09.2012 the appellants had to
relocate the Bus Depot to some other place, and the same was
not done, the respondents herein filed Contempt Petition No. 474
of 2013 in Writ Petition No. 5481 of 2011. Some significant
developments which took place in the Contempt Petition need to
be mentioned at this stage.
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17) On receiving the notice of contempt, in which Chairman-cum-
Managing Director (CMD) of DTC was impleaded as respondent/
contemnor, the CMD filed an affidavit dated 23.01.2014 on behalf
of the DTC wherein undertaking was given to the Court to vacate
the site in question on or before 31.10.2014. It was also
mentioned by the DTC in the affidavit that the problem could be
solved by the DDA with the allotment of alternate land. Since the
officials of the DDA was also impleaded as a contemnor in the
said Contempt Petition, they filed periodic Status Reports in
respect of allotment of land. The ultimate result was that the
DDA allotted 8.25 acres of additional land at Sarai Kale Khan, 10
acres of land at Narela, 16.33 acres of land at Anand Vihar and
20 acres of land at Rohini Phase-V. The stand of the DTC was
that some portion of the land allotted by the DDA had been
encroached upon illegally and the land use had also not been
changed because of which the DTC was unable to shift.
In the meantime, the application for extension of time was filed,
as aforesaid, which was pending consideration by the Division
Bench of the High Court and because of this reason, the
Contempt Petition was adjourned from time to time to await the
result of the said application.
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When the Division Bench dismissed the application for extension
of time vide impugned order dated 20.10.2015, the Contempt
Petition was taken up by the learned Single Judge of the High
Court and taking note of the said dismissal, the High Court
pointed out that the DTC had to forthwith comply with the order
dated 13.09.2012. As on that date, the DTC informed the Court
that 500 out of 800 buses that were being parked at the
Millennium Bus Depot had already been shifted to other Bus
Depots. In this scenario, the Court granted the DTC two months
further time, i.e. till 27.01.2016, to vacate the Bus Depot by
shifting remaining buses as well to some other Depots.
18) The position that emerges from the aforesaid events can be
summed up as under:
Though an opportunity was granted by the High Court to the
appellants to have the MPD-2021 amended, if the same was
possible, and the time of six months was granted for this
purpose, even when almost four and a half years have passed,
there is no amendment in the Master Plan. In the absence of
said amendment, the legal position is that Millennium Bus Depot
at the given site cannot operate. In the Contempt Petition,
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undertaking was given by the DTC to vacate the Bus Depot by
31.10.2014. That undertaking is not adhered to. No doubt,
application for extension of time was pending and because of
this reason the Contempt Petition was adjourned from time to
time, but the said application for extension has been dismissed
taking note of the fact that the appellants have failed to get the
Master Plan amended. In the impugned order, while dismissing
the said application, the High Court has taken note of the
circumstances because of which there is no amendment to the
Master Plan.
19) Another material fact which is to be noticed is that in respect of
this very issue, there was a meeting held under the
Chairmanship of the Chief Minister of Government of NCT of
Delhi on 15.01.2014 wherein the background of the development
of the Millennium Bus Depot was explained by the Chief
Secretary. After understanding this background, the Chief
Minister pointed out the urgent need to protect the land along the
riverbed of the river Yamuna to increase recharge and to
supplement the water needs of the city of Delhi. He was,
therefore, of the view that DTC should vacate the land in
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question and move its buses to some alternate location and the
same be done in a time bound manner. As the Minutes of the
said meeting reflect, the demand of the Chairman of the DTC
was that the DDA should immediately provide alternate land for
relocating thousand buses which are parked and maintained at
the said Depot. It was explained that if no alternate site is
immediately made available, the DTC will face great difficulty in
parking its fleet as there are huge constraints in its existing
depots for the fleet in question. DTC even gave the explanation
by submitting that it had got the Environmental Impact
Assessment from WAPCOS (a Government of India body under
the Ministry of Water Resources) and it was committed to
following the said Report in all respects. It also mentioned that
the DTC was making efforts in creating greenery in the area and
setting up of effluent treatment plants. Significantly,
notwithstanding the above, the Chief Minister expressed that
DTC should relocate to some other place. The entire discussion
thereof proceeded on the alternate land to be allotted by the
DDA to the DTC.
20) If only the aforesaid features are to be kept in mind, there is
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hardly any reason to interfere with the order passed by the High
Court. In fact, Mr. Shanti Bhushan and Mr. Jayant Bhushan,
learned senior counsel appearing for the respondents, on the
other hand, submitted that the aforesaid circumstances, as
pointed out by the appellants, had no bearing on the issue and
having regard to the solemn undertaking given by the DTC in its
affidavit to shift the Bus Depot by 31.10.2014, which had already
been flouted, and the DTC was in clear contempt, no further
chance should be given to the appellants in this behalf.
21) Notwithstanding the above position, Mr. K.K. Venugopal, learned
senior counsel appearing for the DTC, and Dr. Rajeev Dhawan,
learned senior counsel appearing for the Govt. of NCT of Delhi,
made a passionate plea for grant of some more time as
according to them there was still a possibility of amending the
Master Plan suitably in near future. Such a plea was predicated
on the developments which have taken place after the passing of
the impugned order. Explaining the position, it was submitted
that no amendment in MPD 2021 would be carried out earlier
because of the following three hurdles:
1) L&DO land ownership issue.
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2) Yamuna Standing Committee approval.
3) Foresh Department approval.
Mr. Venugopal submitted that on all three fronts, the ground
realities had undergone a total change. It was pointed out that
even when L&DO had raised the issue of land ownership, it had
in principle accepted to grant No Objection Certificate for the
retention of DTC Bus Depot. Even Yamuna Standing Committee
had granted its approval in principle, which was evident from the
Minutes of the Meeting held on 17.09.2013 and 04.10.2013.
Likewise, Forest Department approval was under consideration,
which was clear from the correspondence that was exchanged in
this behalf and it was explained that no prior environment
clearance was needed in this case as the built up area in the
complex is less than 20,000 sq.mts. The learned counsel also
referred to the minutes of the meeting held under the
Chairmanship of A.S. (UD) in the Ministry of Urban Development,
on 17.10.2015 wherein following was agreed:
(i) DDA will take immediate steps, possibly within a period of one
month, for demarcation of 'O' zone area after collecting the
required statistics from the Irrigation & Flood Control Department
of GNCTD.
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(ii) MD, DTC will actively coordinate with DDA for facilitating collecting
the data and also in whatever way possible for conducting the
demarcation of 'O' zone and also approaching the Principal
Committee for its permission.
(iii) Once the required permission from the Principal Committee is
available and the court cases are disposed of, L&DO will take
necessary action for issuing the required NOC for land use for
the Bus Depot.
It was submitted that Minutes of the said Meeting were prepared
only on 28.10.2015 and, therefore, could not be placed before
the High Court when the matter was taken up on 20.10.2015 and
impugned order passed.
22) Another significant development which was pointed out was the
order dated 13.01.2015 of the National Green Tribunal passed in
OA No. 6/2012 and MA Nos. 967/2013 and 275/2014 in the
matter of Manoj Mishra v. Union of India & Ors. That case
pertains to cleaning of River Yamuna. In the aforesaid order,
after comprehensively reviewing the situation in the light of
various technical reports etc., the Tribunal has given some
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directions which, inter alia, include the direction to all concerned
authorities, including the DDA, Municipal Corporations and the
Govt. of NCT of Delhi, to take immediate and effective steps for
identification of floodplain. The Tribunal has directed preparation
of a map in this regard and physically demarcate the entire
floodplain. There is also a direction to the Principal Committee to
identify which structures were to be demolished and which ones
were to be retained, in the interest of ecology and environment.
The public interest in retaining the said Bus Depot was again
emphasized and it was submitted that once the aforesaid
exercise of demarcation of the entire floodplain is carried out by
the Principal Committee, the stand of the appellants would be
vindicated that the area in question where the Bus Depot has
been constructed does not fall within the floodplain thereby
paving way for the amendment of the Master Plan.
23) We have considered the respected submissions of learned
counsel for the parties on either side. As is clear from the tenure
and spirit behind the orders dated 13.09.2012 passed by the
High Court, the chance was given to the appellants to have the
MPD 2021 amended if it was permissible in law and the period of
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six months was given for this purpose. This was done by the
High Court keeping in view the submission of the appellants
herein that the Bus Depot in question was constructed to serve
greater public purpose; the area in question was, as a matter of
fact, was not falling on the river bed; and there was no threat to
environment or ecology in having the Bus Depot at the given site.
Exercise to consider the aforesaid aspect has not taken place, or
for some reason or the other, whether it was because of dispute
between L&DO and DDA on the issue of land ownership or
otherwise. However, the development which have taken place in
recent times, particularly the orders of the National Green
Tribunal, point out to the fact that things are started moving and it
would be known in near future as a result of study conducted by
the Expert Committee, whether area in question where the Bus
Depot stands, is viable for this purpose or not, directing the DTC
to demolish the Bus Depot at this juncture may not be
appropriate and the decision in this regard can be deferred for
some time to await the outcome of the report of the identification
of floodplain.
24) Accordingly, we dispose of these appeals by granting one year
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time to the DTC during which period the DTC shall either get the
MPD 2021 amended, failing which it shall shift the Depot in
question. We make it clear that no further time on any ground
whatsoever shall be granted in this behalf.
….......................................CJI. (T.S.THAKUR)
.............................................J. (A.K. SIKRI)
.............................................J. (R. BANUMATHI)
NEW DELHI; FEBRUARY 05, 2016.
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