NATIONAL INSTITUTE OF MEDICAL SCIENCE UNIVERSITY RAJASTHAN AND ANR. Vs STATE OF RAJASTHAN AND ORS.
Bench: HON'BLE MR. JUSTICE MADAN B. LOKUR, HON'BLE MR. JUSTICE DEEPAK GUPTA
Judgment by: HON'BLE MR. JUSTICE MADAN B. LOKUR
Case number: SLP(C) No.-038040-038041 / 2012
Diary number: 40136 / 2012
Advocates: PRASHANT KUMAR Vs
AJAY CHOUDHARY
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SLP (C) Nos. 38040- 38041 of 2012 etc. Page 1 of 19
REPORTABLE
IN THE SUPREME COURT OF INDIA
CIVIL APPELLATE JURISDICTION
SPECIAL LEAVE TO APPEAL (CIVIL) NOS. 38040-38041 OF 2012
National Institute of Medical Science University
Rajasthan & Anr. …Petitioners
versus
State of Rajasthan & Ors. …Respondents
WITH
SLP (C) NOS. 38332-38333 of 2012
J U D G M E N T
Madan B. Lokur, J.
1. These petitions are illustrative of how some interests can
frustrate the rule of law and get away with it. What the petitioners
are responsible for, apparently along with several others, is creating a
water shortage in Jaipur City and also ensuring that Ramgarh Lake
which was made famous in the Asian Games held in 1982 is now
completely dry and the catchment areas of Ramgarh Dam are
rendered completely useless. This is a tragedy of enormous
proportions and rather unfortunately neither the State of Rajasthan
nor the Jaipur Development Authority has thought it fit to take stern
SLP (C) Nos. 38040- 38041 of 2012 etc. Page 2 of 19
remedial action. They are thereby compounding the woes of the
residents of the city of Jaipur. It is often said that power comes with
responsibility – and so should it be with the State and the authorities
and the petitioner, particularly when it concerns the interests of the
people.
2. The origin of these petitions can be traced back to the decision
of the Rajasthan High Court in Abdul Rahman v. State of
Rajasthan.1 In this decision, the High Court attempted, through a
series of directions, to ensure free flow of water in the catchment
areas of Ramgarh Dam (near Jaipur) and through Tala River and
Banganga River. The directions were the conclusion of a public
interest litigation in which a public spirited person approached the
Rajasthan High Court and highlighted the necessity of protecting
tanks and ponds in Rajasthan for a proper and healthy environment
to enable the people to enjoy quality life, the essence of the right of a
citizen guaranteed by Article 21 of the Constitution.
3. What is the significance of Ramgarh Dam? The dam was
constructed in 1903 having a catchment area of about 769.20 sq. km.
spread over four Tehsils, namely, Jamvaramgarh, Amer, Shahpura
and Viratnagar. The water harnessed by the dam was, till 1978, a
source of irrigation. Thereafter, it became a source of drinking water
1 DBCWP No.1536 of 2003 decided on 2nd August 2004
SLP (C) Nos. 38040- 38041 of 2012 etc. Page 3 of 19
for Jaipur City. During the Asian Games held in India in 1982
Ramgarh Lake was one of the highlights of the Games and events
relating to water sports were held in the Lake. Unfortunately, today
the Lake is dry and apparently heavily encroached upon due to the
omissions and commissions of various departments of the
Government of Rajasthan. What is worse is that with the Lake drying
up and the catchment areas without any water, Jaipur City is faced
with a scarcity of water.
4. With these ground realities in mind and while entertaining the
Public Interest Litigation (PIL) initiated by Abdul Rahman, the High
Court passed an order on 18th July 2003 requiring the State
Government to undertake a general survey to identify the catchment
areas of Ramgarh Dam that were misused for construction and
mining purposes. This was in the context of what appeared to the
High Court as indiscriminate mis-utilization of the catchment areas
for construction and mining purposes which prevented lakes,
reservoirs, rivers, ponds, etc., from receiving water even during the
monsoon season. The survey was also intended to study the effect of
utilization of the catchment areas for construction, mining and other
purposes. The State Government was also required to suggest
measures for restoring the catchment areas to their original shape and
use.
SLP (C) Nos. 38040- 38041 of 2012 etc. Page 4 of 19
5. Pursuant to the directions given by the High Court on 18th July
2003, the State Government constituted an Expert Committee which
gave a report that makes for some very sad reading. However, the
Expert Committee also gave as many as 15 valuable suggestions for
restoring the catchment areas to their original shape and use. These
suggestions were accepted by the High Court and directions issued to
the State Government to consider the recommendations of the Expert
Committee and chalk out a plan to take effective steps to restore the
catchment areas. Three months time was granted to the State
Government to give concrete and positive shape to the suggestions.
6. Not surprisingly, no seriousness was attached to the decision
and directions of the High Court in Abdul Rahman and matters were
allowed to drift.
Suo motu proceedings
7. Under these circumstances, due to the lack of any positive and
visible action by the State Government in preserving and protecting
the catchment areas of Ramgarh Dam, a learned Single Judge of the
Rajasthan High Court was persuaded to initiate suo motu
proceedings titled as Suo Motu v. State of Rajasthan (registered as
SBCWP No.11153 of 2011).
8. On 23rd August 2011 the learned Single Judge noted that the
catchment areas of Ramgarh Dam were not being given the deserved
SLP (C) Nos. 38040- 38041 of 2012 etc. Page 5 of 19
importance due to a lack of coordination between various
departments of the Government of Rajasthan. The learned judge also
noted that no effective steps had been taken for implementing the
directions issued in Abdul Rahman particularly with reference to
Ramgarh Dam and that there was a lack of willingness on the part of
the State Government to take required measures. Accordingly, the
learned judge felt that some monitoring action was necessary for
saving the water resources in Rajasthan and initially with reference
to Ramgarh Dam. In view of this, the learned judge appointed a two
member Monitoring Committee for implementing the directions
relating to Ramgarh Dam in terms of the judgment in Abdul
Rahman. The learned Single Judge also gave certain directions on
23rd August 2011 some of which included the following:
“(i) All the Departments involved in the present matter
like Revenue, Forest, Irrigation, PHED, Environment,
Mining, Panchayati Raj are directed to cooperate with each
other to stop encroachment and illegal construction in the
drainages, channels, nalas, river etc. in the four tehsils
named above.
(ii) State Government will ensure stoppage of
encroachment and construction in the catchment area of
Ramgarh Dam.
(iii) xxx xxx xxx
(iv) State Government will come out with the plan for
removal of encroachments so as to restore the position as
was existing on 15.08.1947.
xxx xxx xxx”
SLP (C) Nos. 38040- 38041 of 2012 etc. Page 6 of 19
9. A perusal of the proceedings in the suo motu petition indicates
that the Monitoring Committee put in considerable efforts and gave
valuable inputs through its reports. In its written submissions filed
before the learned Single Judge, it was noted that there is a problem
of scarcity of water and even Ramgarh Dam, which was considered
the only reservoir of water supply to Jaipur City had become dry due
to encroachments and obstructions. The dam was unable to get water
due to land grabbers, property dealers, constructions and farm
houses, club houses, resorts, etc.
10. In its written submissions, the Monitoring Committee noted
that the petitioners before us had made massive encroachments in the
catchment areas of Ramgarh Dam. The learned Single Judge took
note of the reports and submissions of the Monitoring Committee
and passed a final order on 29th May 2012 giving a series of
directions with the expectation and hope that the directions would
not remain only on paper but would be implemented in reality.
Remedial steps
11. The sequence of events over the last 15 years indicates that the
effort made by the Division Bench of the High Court in Abdul
Rahman as well as the effort made by the learned Single Judge in
the suo motu proceedings hardly yielded any positive results at least
SLP (C) Nos. 38040- 38041 of 2012 etc. Page 7 of 19
insofar as they relate to the petitioner - the National Institute of
Medical Sciences University or NIMS.
12. However, before detailing the steps concerning NIMS, it must
be stated that the Government of Rajasthan prepared an Initial
Action Plan in July 2012 followed by a report prepared by a
Technical Committee on 9th January 2013 on Less/no inflow in
Ramgarh Dam (District Jaipur) Despite Average and Above Average
Rainfall and Remedial Measures to Restore Inflow.
13. During the hearing of these petitions, we had enquired from
the learned counsel whether there is any water in Ramgarh Lake but
were told that it is still bone dry. It appears to us, therefore, that the
Initial Action Plan and the report of the Technical Committee as well
as expectations and hope of the learned Single Judge that the
directions, plans of action and remedial measures would not remain
only on paper but would be implemented in reality have been
completely belied. This is a pity.
Facts relating to NIMS
14. The petitioner is a University and presumably it is a University
of some repute and responsibility. It made an application for
allotment of land in village Jugalpur, Tehsil Amer in District Jaipur
to the District Collector of Jaipur on 10th May 2002. However, the
application for allotment did not include Khasra No.526 with which
SLP (C) Nos. 38040- 38041 of 2012 etc. Page 8 of 19
we are concerned. NIMS apparently did not receive any reply to the
application.
15. For reasons that are not quite clear, NIMS sent a letter to the
Chief Minister of Rajasthan on 28th February 2005 to the effect that
it had allegedly encroached upon Khasra No. 526. Having denied the
allegation, NIMS then sought allotment of that Khasra being No. 526
Rakba 14.44 hectare.
16. According to NIMS, it made several subsequent
representations for allotment of Khasra No. 526 but received no
reply from any of the authorities for as long as 10 years. During this
period, NIMS presumed that the silence of the State Government
meant that it had no objection to the allotment. Accordingly, it
claimed to have purchased several parcels of land including Khasra
No. 526 from various Khatedars and claimed that demarcation of the
land was also carried out by the Revenue authorities. On the
presumption that there was no objection to the allotment of the land,
NIMS made massive construction on Khasra No. 526.
17. Eventually and since no favourable action was taken on the
representations made, NIMS filed S.B. Civil Writ Petition No. 1814
of 2012 in the High Court praying that directions may be issued in its
favour for allotment of land including Khasra No. 526 for its
University. The writ petition came to be dismissed by a learned
SLP (C) Nos. 38040- 38041 of 2012 etc. Page 9 of 19
Single Judge of the High Court by a judgment and order dated 1st
November 2012.
18. Around that time, NIMS was issued a notice dated 13th
February 2012 under Section 72 of the Jaipur Development
Authority Act, 1982 in respect of the alleged encroachments on
Khasra No. 526.
19. Feeling aggrieved by the notice, NIMS preferred Appeal No.
37 of 2012 before the Appellate Tribunal, Jaipur Development
Authority. After hearing NIMS, the Appellate Tribunal dismissed
the appeal by its judgment and order dated 12th October 2012. This
led NIMS to prefer S.B. Civil Writ Petition No.16836 of 2012 in the
High Court. This writ petition was clubbed along with S.B. Civil
Writ Petition No. 1814 of 2012 and both were dismissed by a learned
Single Judge on 1st November 2012.
20. Feeling aggrieved by the dismissal of both the writ petitions,
NIMS preferred special appeals before the Division Bench of the
High Court and these were registered as D.B. Civil Special Appeal
(Writ) Nos. 1455-1456 of 2012. Both the appeals were heard by the
Division Bench and dismissed by the impugned judgment and order
dated 26th November 2012.
Decision of the learned Single Judge
21. A perusal of the judgment and order passed by the learned
SLP (C) Nos. 38040- 38041 of 2012 etc. Page 10 of 19
Single Judge indicates that in fact the land in dispute namely Khasra
No. 526 originally vested in the State Government. By a Notification
issued on 1st October 2007 it then vested in the Jaipur Development
Authority and was brought within the limit of the Jaipur
Development Authority. Therefore, from 1st October 2007 only the
Jaipur Development Authority had jurisdiction over the land bearing
Khasra No. 526.
22. The learned Single Judge also noted that the Appellate
Tribunal had required measurements to be carried out with reference
to Khasra No.526 and on 11th September 2012 it was found that
NIMS had encroached upon land measuring 8125 sq. mtrs. in Khasra
No. 526 and also in certain other areas. But as we have mentioned
above we are only concerned with Khasra No. 526. With regard to
the inaction on the representation made by NIMS for allotment of
land, the learned Single Judge noted that merely because the
concerned authorities had not taken any decision on the
representation, NIMS was not entitled to presume that there was no
objection to its taking possession of the land and constructing
thereon. Accordingly, the learned Single Judge found no error in the
view taken by the Appellate Tribunal holding that NIMS had
encroached on 8125 sq mtrs. of land in Khasra No. 526 and that
NIMS was not entitled to make any construction thereon. While
SLP (C) Nos. 38040- 38041 of 2012 etc. Page 11 of 19
dismissing the writ petitions by judgment and order dated 1st
November 2012 the learned Single Judge directed the Jaipur
Development Authority to demolish the construction. However, it
was further directed that demolition would not take place till 7th
November 2012.
Decision of the Division Bench
23. NIMS appealed against the decision of the learned Single
Judge. While deciding the appeals, the Division Bench accepted the
view expressed by the learned Single Judge and dismissed the
appeals.
24. Before the Division Bench, it was contended by NIMS that the
land in dispute was pasture land and that it could be allotted to NIMS
under the local laws including the Rajasthan Land Revenue
(Allotment of Unoccupied Government Agricultural Lands for the
Construction of Schools, Colleges, Dispensaries, Dharamshalas and
Other Buildings of Public Utility) Rules, 1963 as well as the
Rajasthan Tenancy Act, 1956 and the Rules framed thereunder.
Reference was also placed on the Rajasthan Improvement Trust
(Disposal of Urban Land) Rules, 1974. The Division Bench took
note of all these provisions and observed that in its initial application
dated 10th May 2002 made to the Collector, no request was made by
NIMS for allotment of Khasra No. 526. For the first time such a
SLP (C) Nos. 38040- 38041 of 2012 etc. Page 12 of 19
request was made by NIMS on 28th February 2005 to the Chief
Minister of Rajasthan and not to the concerned Collector who alone
was competent to make the allotment. The Division Bench also
made a reference to Section 16 of the Rajasthan Tenancy Act, 1955
and noted that Khatedari rights could not accrue in pasture land and
therefore it was not available for allotment.
25. The Division Bench held that even otherwise, after 1st October
2007 Khasra No. 526 vested in the Jaipur Development Authority
and therefore the allotment could be made only by that Authority in
terms of Section 54 of the Jaipur Development Authority Act and not
by the State Government.2 The High Court noted that no application
2 54. Land to vest in the Authority and its disposal. – (1) Notwithstanding anything contained in the Rajasthan Land Revenue Act, 1956 (Rajasthan Act No. 15 of 1956), the land as defined in section 103 of that Act, excluding land referred to in sub-clause (ii) of clause (a) of the said section and Nazul Land placed at the disposal of a local authority under section 102-A of that Act in Jaipur Region shall, immediately after establishment of the Authority under section 3 of this Act, be deemed to have been placed at the disposal of and vested in the Authority which shall take over such land for and on behalf of the State Government and may use the same for the purposes of this Act and may dispose of the same by way of allotment, regularization or auction subject to such conditions and restrictions as the State Government may, from time to time, lay down and in such manner, as it may, from time to time, prescribe:
Provided that the Authority may dispose of any such land— (a) without undertaking or carrying out any development thereon; or (b) after undertaking or carrying out such development as it thinks fit, to such person, in such manner and subject to such covenants and conditions, as it may consider expedient to impose for securing development according to plan.
(2) No development of any land shall be undertaken or carried out except by or under the control and supervision of the Authority. (3) If any land vested in the Authority is required at any time by the Nagar Nigam, Jaipur for carrying out its functions, or by the State Government for any other purpose, the State Government may, by notification in the Official Gazette, place such land at the disposal of the Nagar Nigam, Jaipur or any Department of the State Government on such terms and conditions, as may be deemed fit.
(4) All land acquired by the Authority, or by the State Government and transferred to the Authority, shall be disposed of by the Authority in the same manner as may be prescribed for land in sub-section (1).
SLP (C) Nos. 38040- 38041 of 2012 etc. Page 13 of 19
was made by NIMS to the Jaipur Development Authority for
allotment of Khasra No. 526 or any other Khasra of village
Jugalpura.
26. Under these circumstances, the Division Bench took the view
that NIMS had encroached upon Khasra No. 526 and had raised
constructions thereon without any permission or sanction and that it
was not possible to ignore the illegalities committed by NIMS.
27. NIMS contended before the Division Bench that since massive
constructions had already been made, no useful purpose would be
served by demolishing the construction. It was submitted that
demolition would not serve any public purpose. This submission was
rejected by the Division Bench by relying upon a decision of this
Court in Jagpal Singh v. State of Punjab3 to the effect that if land is
not available for allotment and construction is made thereon, then
that construction must be demolished.
28. The High Court also took the view that if appropriate steps are
not taken to remove the encroachment, it would encourage others to
encroach upon land and to seek regularization of any illegal
construction made thereon.
29. As far as the decision rendered by the Appellate Tribunal is
concerned, the Division Bench noted that the report of 11th
3 (2011) 11 SCC 396
SLP (C) Nos. 38040- 38041 of 2012 etc. Page 14 of 19
September 2012 was unimpeachable and there was no doubt that
NIMS had encroached on 8125 sq. mtrs. of land in Khasra No. 526.
Proceeding in this Court
30. It was submitted by learned counsel for NIMS that no
encroachment was made by NIMS and that in any event there were a
large number of encroachers in the catchment areas. According to
learned counsel there was no reason why only NIMS should be
singled out for adverse or punitive treatment. We are not at all
impressed by the submissions made by learned counsel.
31. What is before us is really only a factual dispute. NIMS has
not been able to show any perversity, on facts, in the orders passed
by the Appellate Tribunal or by the learned Single Judge or by the
Division Bench.
32. One of the factual conclusions arrived at by the High Court is
that NIMS had made a request for allotment of Khasra No. 526 for
the first time only on 28th February 2005 and that too before the
Chief Minister who was not the competent authority to make the
allotment – the competent authority being the Collector of Jaipur
district. Why NIMS chose to directly approach the Chief Minister is
a mystery which can be solved only by NIMS.
33. Post 1st October 2007 there was no request made by NIMS to
the Jaipur Development Authority for the allotment of Khasra No.
SLP (C) Nos. 38040- 38041 of 2012 etc. Page 15 of 19
526.
34. Assuming there was no response from the Chief Minister to
that or any other representation made by NIMS to any authority
including the Jaipur Development Authority for allotment of Khasra
No. 526, NIMS had no right to assume that its request for allotment
had been accepted (or not rejected) by the Chief Minister or the
Jaipur Development Authority and on that assumption to make
constructions on the land without any permission or sanction.
35. It has also come on record as a matter of fact that NIMS had
encroached upon 8125 sq. mtrs. in Khasra No. 526. It has also come
on record that in fact NIMS had not filed any objections to the
Report dated 11th September 2012 before the Appellate Tribunal. It
has also come on record that as a matter of fact due to the illegal and
unlawful construction having been made in the area by several
parties including NIMS, Ramgarh Lake is now absolutely dry and
the residents of Jaipur city are suffering from water shortage because
of this - since water from the region was being supplied to Jaipur city
before the area dried up. These undisputed facts are enough to
dismiss the petitions filed by NIMS. There is no law that supports
the brazenness of NIMS in wantonly encroaching on Khasra No. 526
and then making huge constructions thereon.
36. Learned counsel for NIMS did not place before us any law or
SLP (C) Nos. 38040- 38041 of 2012 etc. Page 16 of 19
decision to support the encroachment by NIMS on Khasra No. 526.
But, learned counsel for the Jaipur Development Authority as well as
learned counsel for Dinesh Kumar Saini a reporter of Current Jwala
(Respondent No. 2) drew our attention to Section 16 of the Rajasthan
Tenancy Act, 1955 which prohibits accrual of Khatedari rights in
pasture land. 4 It was submitted that in view of this provision,
assuming the land in Khasra No. 526 to be pasture land, NIMS could
not have acquired Khatedari rights as claimed.
Conclusion
37. It is most unfortunate that despite orders passed by the
Rajasthan High Court in Abdul Rahman and in the suo motu petition
and views expressed by the Monitoring Committee appointed by the
High Court as well as the Expert Committee set up by the State
Government and plan of action having been prepared by the State
Government, nothing substantive appears to have been achieved on
the ground over the years.
38. Under the circumstances, we have no option but to dismiss the
petitions but with costs of Rs.10 lakhs per petition for the brazen
4 16. Lands in which Khatedari rights shall not accrue – Notwithstanding anything in this Act or in any other law or enactment for the time being in force in any part of the State Khatedari rights shall not accrue in – (i) pasture land;
(ii) to (xiv) xxxx Provided that …..
SLP (C) Nos. 38040- 38041 of 2012 etc. Page 17 of 19
encroachment. The amount should be deposited by NIMS in the
Registry of this Court within six weeks.
39. In our opinion, merely dismissing the petitions would serve no
useful purpose since it appears to us that NIMS is a rather powerful
and influential entity. We say this because it has been able to
successfully frustrate its eviction and demolition of the construction
for at least one decade. Even before us an attempt was made to take
an adjournment so that it could possibly use its influence over
whoever it may be to get some favourable executive orders.
40. In M.I. Builders Pvt. Ltd. v. Radhey Shyam Sahu and Ors5
this Court directed enforcement of the rule of law by demolition of
unauthorized constructions. It was held as follows:
“The High Court has directed dismantling of the whole
project and for restoration of the park to its original
condition. This Court in numerous decisions has held that no
consideration should be shown to the builder or any other
person where construction is unauthorised. This dicta is now
almost bordering the rule of law. Stress was laid by the
appellant and the prospective allottees of the shops to
exercise judicial discretion in moulding the relief. Such
discretion cannot be exercised which encourages illegality
or perpetuates an illegality. Unauthorised construction, if it
is illegal and cannot be compounded, has to be demolished.
There is no way out. Judicial discretion cannot be guided by
expediency. Courts are not free from statutory fetters.
Justice is to be rendered in accordance with law. Judges are
not entitled to exercise discretion wearing the robes of
judicial discretion and pass orders based solely on their
personal predilections and peculiar dispositions. Judicial
discretion the wherever it is required to be exercised has to
be in accordance with law and set legal principles. As will
5 (1999) 6 SCC 464
SLP (C) Nos. 38040- 38041 of 2012 etc. Page 18 of 19
be seen in moulding the relief in the present case and
allowing one of the blocks meant for parking to stand we
have been guided by the obligatory duties of the Mahapalika
to construct and maintain parking lots.”
41. This view was followed and endorsed in Jagpal Singh in the
following words:
“In M.I. Builders (P) Ltd. v. Radhey Shyam Sahu the
Supreme Court ordered restoration of a park after demolition
of a shopping complex constructed at the cost of over Rs.
100 crores.
In Friends Colony Development Committee v. State of
Orissa 6 this Court held that even where the law permits
compounding of unsanctioned constructions, such
compounding should only be by way of an exception. In our
opinion this decision will apply with even greater force in
cases of encroachment of village common land. Ordinarily,
compounding in such cases should only be allowed where
the land has been leased to landless labourers or members of
Scheduled Castes/Scheduled Tribes, or the land is actually
being used for a public purpose of the village e.g. running a
school for the villagers, or a dispensary for them.
In many States government orders have been issued by the
State Government permitting allotment of Gram Sabha land
to private persons and commercial enterprises on payment of
some money. In our opinion all such Government orders are
illegal, and should be ignored.”
42. Keeping in mind the view expressed by this Court in these and
other decisions, we also direct the demolition of the unauthorized
construction by or on behalf of NIMS on Khasra No. 526. The
demolition should be carried out by the Jaipur Development
Authority with the assistance of the State Government and the
6 (2004) 8 SCC 733
SLP (C) Nos. 38040- 38041 of 2012 etc. Page 19 of 19
Collector of Jaipur District on or before 30th November, 2017. The
Director General of Police of Rajasthan is directed to render all
necessary assistance in the process of demolition. The cost of
demolition and removal of rubble etc. will be at the expense of
NIMS. Any pending application made by NIMS for compounding
the unauthorized construction or regularizing it stands superseded in
view of our decision.
43. We are giving these peremptory time bound directions in view
of the fact that the learned Single Judge felt it appropriate, while
dismissing the writ petitions filed by NIMS, to grant interim relief
limited to only 7 days. More importantly, we are of opinion that the
possibility of water being now made available to Jaipur City in due
course of time takes far greater precedence over the interests of
NIMS and those associated with it.
44. The petitions are dismissed with the above directions.
.......……………………J
(Madan B. Lokur)
………………………...J
New Delhi; (Deepak Gupta)
November 9, 2017