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All that the statute requires is that, the Executive Authority of the Panchayat should obtain prior concurrence from the Director of the Town Planning in the case of development of a land in non-planning area, or consult the Joint Director or Deputy Director of Town Planning for grant of permission for public buildings, as the case may be. This has to be done by the Panchayat/the Executive Authority internally, and it does not require an individual to apply separately to the Town Planning Authority.
The basic premise that may now be formulated is that Rule 25 of the Building Rules should not be construed as a mere piece subordinate legislation of a common variety, but as part of a substantial legislative strategy for achieving the objective under Article 243-G of the Constitution. This would mean that when compared with the TCP Act, Rule 25 is a special legislation intended for Panchayats.

34. While framing the Panchayat Building Rules, the State legislature/the Government cannot be said have been oblivious to the TCP Act. This is reflected in the fact that it still required the Executive Authority of the Panchayat to obtain the concurrence of the Director of Town Planning Authority under Rule 3 of the Building Rules, and to engage in a consultation with the Joint/Deputy Directors of Town Planning. This now brings into focus the Proviso to Rule 25 of the Building Rules. It is reproduced for a contextual emphasis :

44. To sum up the decision of this Court on this aspect:

a)There shall be only one window where applications for constructions, alteration of all public buildings in the Panchayat must be made, and this will be the Executive Authority of the Panchayat. There is no need for a person to apply for permission for a construction within the Panchayat to the Town Planning Authority under Sec.49 of the TCP Act.
b)The Executive Authority shall engage in a consultative process with the Joint Director or Deputy Director, Town and Country Planning providing the latter with all necessary materials and particulars for the latter to form his opinion and advice.
e)If the Executive Authority of the Panchayat decides to override or supersede the opinions/advices of the Joint Director or the Deputy director of Town and Country Planning, then it can be done only on grounds of weighty and justifiable reasons of greater quality.
f)If the Executive Authority finds any arbitrariness or lack of inadequate application of mind by the consultee, namely the Joint Director or the Deputy Director of Town and Country Planning, it is no reason for the Executive Authority of the Panchayat to supersede such opinions of the consultee Authorities of the TCP Act. In all such instances, the Executive Authority of the Panchayat shall return the opinion received to the consultee Authorities, drawing their attention to the specific aspect/aspects where the former considers the opinion/advice as incomplete or inadequate, with a copy addressed to the Director of Town and Country Planning.