Kerala High Court
M/S.Noel Villas And Apartments vs Thrikkakara Municipality on 12 June, 2012
Author: C.K.Abdul Rehim
Bench: C.K.Abdul Rehim
IN THE HIGH COURT OF KERALA AT ERNAKULAM
PRESENT:
THE HONOURABLE MR.JUSTICE C.K.ABDUL REHIM
TUESDAY, THE 12TH DAY OF JUNE 2012/22ND JYAISHTA 1934
WP(C).No. 3790 of 2012 (W)
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PETITIONER:
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M/S.NOEL VILLAS AND APARTMENTS,
REPRESENTED BY ITS MANAGING PARTNER-JOHN THOMAS ,
5TH FLOOR , NOEL HOUSE,
THRIKKAKARA, KOCHI-682021.
BY ADVS.SRI.V.V.ASOKAN
SMT.RUKHIYABI MOHD KUNHI
RESPONDENTS:
------------------------
1. THRIKKAKARA MUNICIPALITY.
REPRESENTED BY ITS SECRETARY, THRIKKAKARA,
KOCHI-682030.
2. SECRETARY
THRIKKAKARA MUNICIPALITY,THRIKKAKARA, KOCHI-682030..
3. SENIOR TOWN PLANNER,
OFFICE OF THE REGIONAL TOWN PLANNING OFFICE,
ERNAKULAM-682020.
4. GREATER COCHIN DEVELOPMENT AUTHORITY(GCDA),
REPRESENTED BY ITS SECRETARY, GCDA COMPLEX,
ERNAKULAM-682020.
5. STATE OF KERALA
REPRESENTED BY SECRETARY TO GOVERNMENT,
DEPARTMENT OF MUNICIPALITIES, SECRETARIAT
THIRUVANANTHAPURAM-695001.
BY ADV. SRI.JIMMY GEORGE
BY ADV. SRI.S.SHANAVAS KHAN
BY ADV. GOVERNMENT PLEADER SRI.P.JAYASANKAR
THIS WRIT PETITION (CIVIL) HAVING BEEN FINALLY HEARD ON 11.04.2012,
THE COURT ON 12.06.2012 DELIVERED THE FOLLOWING:
MG
WP(C).No. 3790 of 2012 (W)
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APPENDIX
PETITIONERS EXHIBITS:
EXT.P1:- COPY OF AN EYE SKETCH SHOWING THE LIE OF THE PETITIONER'S
PROPERTY.
EXT.P1(A):- COPY OF THE PHOTOGRAPH SHOWING THE EXISTENCE OF RESIDENTIAL
BUILDING.
EXT.P1(B):- COPY OF THE PHOTOGRAPH SHOWING THE EXISTENCE OF RESIDENTIAL
BUILDING.
EXT.P1(C):- COPY OF THE PHOTOGRAPH SHOWING THE EXISTENCE OF RESIDENTIAL
BUILDING.
EXT.P1(D):- COPY OF THE PHOTOGRAPH SHOWING THE EXISTENCE OF RESIDENTIAL
BUILDING.
EXT.P1(E):- COPY OF THE PHOTOGRAPH SHOWING THE EXISTENCE OF RESIDENTIAL
BUILDING.
EXT.P1(F):- COPY OF THE PHOTOGRAPH SHOWING THE EXISTENCE OF RESIDENTIAL
BUILDING.
EXT.P1(G):- COPY OF THE PHOTOGRAPH SHOWING THE EXISTENCE OF RESIDENTIAL
BUILDING.
EXT.P1(H):- COPY OF THE PHOTOGRAPH SHOWING THE EXISTENCE OF RESIDENTIAL
BUILDING.
EXT.P1(I):- COPY OF THE PHOTOGRAPH SHOWING THE EXISTENCE OF RESIDENTIAL
BUILDING.
EXT.P2:- COPY OF THE RELEVANT EXTRACT OF THE PRINT OUT FROM THE
GOVERNMENT WEB SITE.
EXT.P3:- COPY OF THE APPLICATION SUBMITTED BY THE PETITIONER FOR AN
APPROVAL OF THE LAY OUT FOR CONSTRUCTION OF RESIDENTIAL
VILLAS.
EXT.P3(A):- COPY OF THE DRAWING OF THE LAY OUR FOR CONSTRUCTION OF
RESIDENTIAL VILLAS.
EXT.P3(B):- COPY OF THE DRAWING OF THE LAY OUT FOR CONSTRUCTION OF
RESIDENTIAL VILLAS.
EXT.P4:- COPY OF THE COMMUNICATION ISSUED BY THE 2ND RESPONDENT.
EXT.P4(A):- COPY OF THE COMMUNICATION ISSUED BY THE 3RD RESOPNDENT.
MG Contd.....2/-)
WP(C).No. 3790 of 2012 (W)
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EXT.P5:- COPY OF THE REQUEST GIVEN BY THE STAFF OF THE PETITIONER
UNDER RIGHT TO INFORMATION ACT, 2005.
EXT.P5(A):- COPY OF THE REPLY GIVEN BY THE OFFICE OF THE 1ST RESPONDENT.
EXT.P6:- COPY OF THE REQUEST GIVEN BY THE STAFF OF THE PETITIONER
UNDER RIGHT TO INFORMATION ACT, 2005.
EXT.P6(A):- COPY OF THE REPLY GIVEN BY THE OFFICE OF THE 4TH RESPONDENT.
EXT.P7:- COPY OF THE REQUEST GIVEN BY THE STAFF OF THE PETITIONER
UNDER RIGHT TO INFORMATION ACT, 2005.
EXT.P7(A):- COPY OF THE REPLY GIVEN BY THE OFFICE OF THE 4TH RESPONDENT.
EXT.P8:- COPY OF THE REQUEST GIVEN BY THE STAFF OF THE PETITIONER
UNDER RIGHT TO INFORMATION ACT, 2005.
EXT.P8(A):- COPY OF THE REPLY GIVEN BY THE OFFICE OF THE 1ST RESPONDENT.
EXT.P9:- COPY OF THE REQUEST GIVEN BY THE STAFF OF THE PETITIONER
UNDER RIGHT TO INFORMATION ACT, 2005.
EXT.P9(A):- COPY OF THE REPLYT GIVEN BY THE OFFICE OF THE 4TH RESPONDENT.
EXT.P10:- COPY OF THE REQUEST GIVEN BY THE STAFF OF THE PETITIONER
UNDER RIGHT TO INFORMATION ACT, 2005.
EXT.P10(A):- COPY OF THE REPLY GIVEN BY THE OFFICE OF REGIONAL TOWN
PLANNING.
EXT.P11:- COPY OF THE MINUTES OF THE MEETING OF THE GREATER COCHIN
DEVELOPMENT AUTHORITY.
RESPONDENT'S EXHIBITS: NIL
//TRUE COPY//
PA TO JUDGE
MG
C.K. ABDUL REHIM, J.
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W.P.(c) No. 3790 OF 2012-W
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DATED THIS THE 12th DAY OF JUNE, 2012
J U D G M E N T
The petitioner, a builder, had applied for approval of layout for construction of residential villas in a property owned by them situated within the limits of the 1st respondent Municipality. The 3rd respondent had rejected the application through Ext.P4 (a) assigning reason that the property in question is included in the structural plan as "Ground and Public open space" and hence no residential layout can be permitted. On the basis of Ext.P4 (a) the 2nd respondent had informed the petitioner about the rejection, through Ext.P4 letter. The petitioner is challenging Ext.P4 and Ext.P4 (a).
2. It is stated in the writ petition that the property in question is surrounded by large number of residential and commercial buildings including highrise buildings of multi- storied apartment complexes. Exhibit P1 series photographs W.P.(c) No.3790/2012 -2- are produced inorder to substantiate the same. Exhibit P2 is the relevant extract of the Government notification fixing the fair value of land, which will indicate that the property in question is included as residential plots. Contention of the petitioner is that the structural plan formulated under the town planning scheme mentioned in the impugned proceedings is a scheme envisaged by the respondents 2 and 3 as early as in the year, 1990 under the provisions of the Town Planning Act, 1939, which was varied from time to time. But it has not been implemented so far, since the lapse of so many years. The structural plan cannot be pressed into service as it became obsolete due to the various constructions effected in the area in question, during all these years. Exhibits P5 to P11 documents are produced inorder to show that various authorities concerned with implementation of the Town Planning Scheme are at different opinion with respect to existence of the structural plan and with respect to its implementation. Further contention of the petitioner is that the structural W.P.(c) No.3790/2012 -3- plan formulated under the provisions of the Town Planning Act, 1939 cannot survive in view of the subsequent legislative developments. The provisions of the Town Planning Act is in variance with the 74th amendment to the Constitution of India contained in Part IXA, and is in variance with the Kerala Municipality Act, 1994. Much reliance is placed on the decision of this court in Shivaprasad V. State of Kerala (2011 (1) KLT 690).
3. In the counter affidavit filed by the 3rd respondent it is contended that the structural plan for Kochi city was sanctioned during the year 1991 and it is applicable to the 1st respondent Municipality. Since the property comes within the space earmarked as "Ground and Public open space" residential lay out cannot be permitted. The proposal of a town planning scheme, which is sanctioned, will be applicable till such scheme is varied or replaced by any new scheme and the developments within the area covered under the scheme has to be controlled as per the provisions of the scheme. However, it is mentioned that the scheme W.P.(c) No.3790/2012 -4- in question may at any time be revoked or varied by a subsequent scheme. According to the 3rd respondent the structural plan is still in force and in effect and the zoning regulation sanctioned under the plan is compatible with the present development scenario. It is pointed out that the decision in Shivaprasad's case (cited supra) is under challenge in W.A No.1023/2011 and the operation of the judgment has been stayed by a Division Bench.
4. Heard; learned counsel for the petitioner, Sri. S. Shanavas Khan, standing counsel for respondents 1 and 2, and Sri. P. Jayasankar, learned special Government Pleader appearing on behalf of respondents 3 and 5.
5. Since denial of permit is based on violation of the zonal classification under the structural plan formulated under the Town Planning Act 1930, it is necessary to evaluate the legal position settled through various precedents by the hon'ble apex court and this court. In the decision of the hon'ble Supreme Court in Raju S. Jethmalani V. State of Maharashtra and others W.P.(c) No.3790/2012 -5- (2005 (11) SCC 222) it is held that, though land belonging to private persons can be included in development plans, unless the land is acquired by the State Government or by the Municipal Corporation to effectuate the public purposes, such development plan cannot be implemented and the land owner cannot be deprived of using the property for any other purposes. When the Government or Municipal Corporation fails to acquire the land, the private persons cannot be deprived of the use of the land, is the dictum. A Division Bench of this court in Padmini V. State of Kerala (1999 (3) KLT 465) observed that the Municipality has no authority to reject application for building permit on the ground that the land is proposed to be acquired. Referring to section 393 of the Kerala Municipality Act it is observed that, the application can be rejected only if the land is under acquisition proceedings. This court held that the Municipality cannot freeze the land for any indefinite period on the pretext that they are taking steps to acquire the land.
W.P.(c) No.3790/2012 -6-
6. A learned Judge of this court in the case in Nasar V. Malappuram Municipality (2009 (3) KLT 92) observed that the Municipality cannot reject the application for building permit on the ground that the DTP scheme does not provide for grant of building permit as it would be in violation of classification of areas into different zones, which are earmarked for different purposes. It is held that any attempt to curb rights of the owner of land until publication of statutory notifications and declarations for acquisition of the land, would result in infraction of the right to property envisaged under Article 300A of the Constitution. It would result in violation of equality principle in the matter of enforcement of laws as is contained in Article 14 of the Constitution. Any demand to create a rider over the title of the owner under the pretext of a town planning scheme which has not become operational by acquisition, would essentially be oppressive and would not be countenanced on the face of Article 14 of the Constitution, is the findings. However, the decision in W.P.(c) No.3790/2012 -7- Nazar's case (cited supra) has been clarified in a review petition through the decision reported in Secretary to Government V. Nazar (2010 (1) KLT 286). It is held that any statement of law in the said decision would not apply to cases which do not involve acquisition of land for the purpose of the town planning scheme.
7. Sri. P.Jayasankar, learned Special Government Pleader raised contentions that the zonal classification envisaged in the structural plan formulated under the Town Planning Act is intended only for providing special planning and regulations and it does not involve any development which need acquisition of land. Referring to the decision of the hon'ble Supreme Court in Friends Colony Development Committee V. State of Orissa and others (2004 (8) SCC 733) it is contended that although development plans restrict freedom of individual property owners to use their property, merely for that reason it cannot be termed as an arbitrary and unreasonable restriction. Private interest in such cases stands W.P.(c) No.3790/2012 -8- subordinated to public good. Power to plan development of cities and to regulate building activity therein was upheld as a power vested on the State and it cannot be said as an infraction to the rights of private owners. Referring to a Full Bench decision of this court in Francis V. Chalakudy Municipality (1999(3) KLT 560) it is contended that merely because there is failure for acquisition of land within the time limit prescribed in a scheme notified under Section 12 of the Town Planning Act, it will not lapse. Hence it is argued that the contention of the petitioner that the scheme has not been notified and implemented, is of no consequence.
8. Learned Special Government Pleader further pointed out that in Sayeesh Kumar V. State of Kerala (2005 (4) KLT 1027) it is categorically held that the Town Planning Act does not confer any power on the Government to tamper with an approved development scheme and that no power is vested on the Government to grant individual exemption. Hence it is contended that the denial of permit W.P.(c) No.3790/2012 -9- on the basis of the zonal classification is absolutely legal and justified.
9. From the settled legal precedents illustrated in the foregoing paragraphs, it is evident that the rights of private land owners cannot be deprived or oppressed in violation of protections envisaged in Article 300 A and Article 14 of the Constitution. But at the same time any developmental plans restricting freedom of individual owners to use their property in any manner, cannot be termed as totally arbitrary or unreasonable. In such case the restrictions imposed upon private interest stands subordinated to public good and such regulations comes within the power vested on the State. Those restrictions cannot be termed as infractions to the rights of private owners.
10. But the more crucial question emerging in the matter of deciding the case at hand is as to whether any town planning scheme (DTP scheme of structural plan) formulated under the Town Planning Act, 1939 or under the W.P.(c) No.3790/2012 -10- Madras Town Planning Act, 1920 can survive in view of the 74th amendment to the Constitution inserted through Part IX-A and in view of the provisions contained in the Kerala Municipality Act, 1994. The above question has been elaborately dealt with by a learned Judge of this court in the decision in Shivaprasad V. State of Kerala (2011 (1) KLT 690). It is held that the provisions of the Kerala Municipality Act, 1994 is in total variation of the Town Planning Acts. While analysing the issue this court found that, the provisions relating to various Standing Committees under the Municipality Act being saddled with implementation of the Town Planning Scheme, specifically provided under the Twelfth Schedule of Part IX-A of the Constitution and in item No.30 of the First Schedule to the Municipality Act, is totally different from the provisions contained in the Town Planning Acts. Considering other provisions it is found that the Town Planning Department is having grater say under the Town Planning Act and the Government will have to sanction the scheme under Section W.P.(c) No.3790/2012 -11- 12 and to notify the same under Section 12 (5) and under Section 13. But this directly goes against the power conferred on the local self government Institution as envisaged under Part IX-A read with Rule 30 (2) (3) of the Municipality Act, 1994. The scheme under the Municipality Act is completely in variance with the provisions of the Town Planning Acts and it cannot be harmoniously read along with the provisions contained in Part IX-A of the Constitution and the Kerala Municipality Act, 1994. Referring to various powers conferred on the Municipality under Section 51 (3) & (4) of the Kerala Municipality Act, it is observed that those provisions are different in material particulars with the provisions contained in the Town Planning Acts and are at variance substantially. It is also observed that the provisions in Section 53 envisages 'District Planning Committee' to prepare the development plans with respect to matters of common interest between Panchayats and Municipalities including spatial planning and finalisation of integrated District Town Planning. These W.P.(c) No.3790/2012 -12- provisions run in contrary to the provisions contained in the Town Planning Acts, especially under Section 36 which envisages formation of Town Planning Committee. The learned Judge also referred to various other provisions which are in conflict with the Town Planning Acts. Ultimately it is observed that the provisions contained in the Town Planning Act, 1939 and in the Madras Town Planning Act 1920 has become unworkable in view of the conflicting provisions contained in the Kerala Municipality Act, 1994. Pointing out the urgent necessity to bring in a comprehensive legislation for enabling the Municipalities to effectively bring in spatial planning scheme, it is observed that the glaring differences in the approach under the two enactments should get attention of the Government and Legislature. However it is held that the provisions in Town Planning Act, 1939 and Madras Town Planning Act, 1920 with regard to preparation of general town planning scheme and the detailed town planning schemes cannot survive in the light of Part IX-A of the Constitution of India and the W.P.(c) No.3790/2012 -13- Kerala Municipality Act, 1994, especially in view of Article 243 ZF, which permits continuance of such inconsistent laws only for a period of one year, after commencement of the 74th amendment to the Constitution. The learned Judge in Sivaprasad's case (cited supra) envisaged the need to bring out a uniform legislation on Town and Country planning for wider and effective preparations of spatial development plans, Regional Development plans, District Development Plans, Urban Development plans etc. Finding that the provisions of the Town Planning Acts and Section 51 (4) of the Municipality Act cannot survive together and became really unworkable, it was held that the Municipality can have recourse to the existing Town Planning Schemes and they can take appropriate decision in the matter with regard to adoption and continuance of the schemes till new arrangements are made. They can also resort to principles of spatial planning and introduce them in the meanwhile, after comprehensive District Town Planning is implemented. Thus it is found that the spatial planning W.P.(c) No.3790/2012 -14- envisaged under the DTP schemes which was formulated years back under the provisions of the Town Planning Act, 1939 or under the Madras Town Planning Act, 1920 cannot survive.
11. In this context, learned counsel for the petitioner had also brought to my attention a Division Bench decision of this court in Gopalakrishnan V. State of Kerala (2011 (3) KLT 317). It is held therein that, if in an area earmarked as residential zone, large number of constructions for commercial purposes were permitted, whether under orders issued by the Government or not, then the only sensible thing for the Corporation to do is to take a realistic approach by not rendering the area any longer as a residential zone and request the Government to make suitable changes in the master plan to make it in conformity with the ground reality. It is pointed out that, in the case at hand the spatial regulation (spatial planning) envisaged years back through the structural plan has became unworkable, because a lot of constructions has W.P.(c) No.3790/2012 -15- been permitted contrary to the spatial regulation. Hence it is contended that, at any rate the zonal regulations envisaged under the town planning scheme which has not been implemented or notified, cannot be sustained.
12. Learned special Government Pleader submitted that the decision in Sivaprasad's case (cited supra) is pending challenge in a Writ Appeal and a Division Bench of this court had stayed the operation of the judgment. I take note of the fact that the decision in Sivaprasad's case is not a binding precedent on this court. But I perfectly agree with the legal ratio enunciated in the said decision. A Division Bench of this court in Abdu Rehiman V. District Collector, Malappuram (2009 (4) KLT 485 held that, even when a decision of a Division Bench is stayed by the Supreme Court, the single Judges of this court are bound to follow the decision of the Division Bench, as it continues to be a binding precedent for them. In the case at hand, even though Sivaprasad's case is not binding on me, I find that the dictum emerging in the decision has been founded on W.P.(c) No.3790/2012 -16- strong legal basis and it survives, unless reversed. Hence, I hold that the provisions of the Town Planning Act, 1939 and the Madras Town Planning Act, 1920 cannot survive in view of Part IX A of the Constitution of India and in the light of the Kerala Municipality Act, 1994.
13. In view of the above discussions I am of the considered opinion that the denial of approval of layout on the basis of the structural plan and zonal classification formulated under the Town Planning Act, 1939, long before the 74th amendment to the Constitution and before enactment of the Kerala Municipality Act 1994, cannot survive at this point of time. In the result Exts.P4 and P4 (a) cannot be sustained as legal and valid, and hence those proceedings are hereby quashed.
14. The 2nd respondent is directed to consider the application for approval of layout submitted by the petitioner and to dispose of the same afresh, notwithstanding the zonal classification envisaged under the structural plan. Needless to say that approval shall be W.P.(c) No.3790/2012 -17- granted if the petitioner is otherwise eligible and if the application is otherwise in order.
15. A decision in this regard shall be taken at the earliest possible, at any rate within a period of one month from the date of receipt of a copy of this judgment.
Sd/-
C.K. ABDUL REHIM, JUDGE.
AMG True copy P.A to Judge