K. Prabhakaran v. State of Kerala and Others

## **`IN THE HIGH COURT OF KERALA AT ERNAKULAM PRESENT THE HONOURABLE THE CHIEF JUSTICE MR.S.MANIKUMAR & THE HONOURABLE MR.JUSTICE MURALI PURUSHOTHAMAN MONDAY, THE 30[TH] DAY OF JANUARY 2023 / 10TH MAGHA, 1944 WP(C) NO. 34606 OF 2022`** ## **`PETITIONER/S:`** ``` K.PRABHAKARAN AGED 72 YEARS, S/O.KUNHIRAMAN, RESIDING IN SWASRAYA MANDIR, MATTANCHERRY, KOCHI-682002, SECRETARY, SWASRAYA, MATTANCHERRY,KOCHI-682002. ``` ``` BY ADVS. G.HARIHARAN PRAVEEN.H. K.S.SMITHA T.T.SHANIBA M.V.VIPINDAS AMAL DEV D NIKITA NAIR C.S. ASWATHY K.S. ``` ## **`RESPONDENTS:`** ``` 1STATE OF KERALA REPRESENTED BY THE CHIEF SECRETARY TO GOVERNMENT, GOVERNMENT SECRETARIAT, THIRUVANANTHAPURAM – 695001. ``` ``` 2THE PRINCIPAL SECRETARY TO GOVERNMENT, REVENUE & DISASTER MANAGEMENT DEPARTMENT, (STATE RELIEF COMMISSIONER & CONVENER, KERALA STATE DISASTER MANAGEMENT AUTHORITY), GOVERNMENT SECRETARIAT, THIRUVANANTHAPURAM – 695001. ``` ``` 3THE DISTRICT COLLECTOR, ERNAKULAM. CIVIL STATION, KAKKANAD, ERNAKULAM, - 682030 ``` ``` 4THE COCHIN MUNICIPAL CORPORATION, REPRESENTED BY ITS SECRETARY, PARK AVENUE ROAD, MARINE DRIVE, KOCHI, KERALA-682011. ``` _**W.P(C).34606/2022**_ 2 - `5 THE THOPUMPADY VILLAGE OFFICER, P.T JACOB ROAD, KAZHUTHUMUTTU, THOPPUMPADY, KOCHI-682005.` - `6 CHOICE TRADING CORPORATION, REPRESENTED BY ITS MANAGING DIRECTOR, CHOICE HOUSE, P.V.SREEDHARAN ROAD, KUMBALAM, KOCHI-682506.` - `7 MR.JOSE THOMAS, MANAGING DIRECTOR, M/S. CHOICE TRADING CORPORATION, CHOICE HOUSE , P.V.SREEDHARAN ROAD, KUMBALAM, KOCHI-682506.` ``` BY ADV SHRI.K.JANARDHANA SHENOY, SC, KOCHI MUNICIPAL CORPORATION ``` ``` THIS WRIT PETITION (CIVIL) HAVING COME UP FOR ADMISSION ON 30.01.2023, THE COURT ON THE SAME DAY DELIVERED THE FOLLOWING: ``` _**W.P(C).34606/2022**_ 3 ## **J U D G M E N T** Dated this the 30[th] day of January, 2023 ## S. Manikumar, CJ On 01.11.2022, considering the reliefs sought for, and the facts supporting the same, taking note of the decisions of the Hon’ble Supreme Court that writ petition against internal correspondence is not maintainable, and also, finding that xerox copies of certain documents, even signed by the Hon’ble Minister were enclosed and filed without any authenticity, we ordered as under: “Instant public interest litigation is filed for the following reliefs: (i) issue a writ of mandamus, order or direction directing respondents 1 and 2 to cause an enquiry into the encroachment of land and unauthorized construction undertaken by the 7th respondent in 54 cents of land in survey No.577/3 of Rameswaram village and 22.250 lease hold land in survey No.1478 (7.50 cents) and 1166 (12.50 cents) of Rameswaram village and to issue consequential direction to respondents 1 and 2 to restore the land to its original condition as it existed before the development work was undertaken by enforcing the laws of land; ii)To issue a writ of mandamus, order or direction directing the respondents 1 to 4 to take consequential action based on Ext.P6 report; iii) To issue a writ of mandamus, order or direction directing the 4[th] respondent Cochin Corporation not to regularise the unauthorized construction carried out by the 7[th] respondent. _**W.P(C).34606/2022**_ 4 2. Short facts leading to the filing of the writ petition are as follows; 3. According to the petitioner, he is a senior citizen, who is protesting against the illegal and unauthorized construction by Cochin Municipal Corporation and the Thoppumpady Village Officer - the 6[th] and 7[th] respondents respectively. According to the petitioner, the construction of the particular building, which is a flat, has totally violated the Kerala Municipality Building Rules, Civil Aviation Rules, CRZ regulations encroaching upon lease land. 4. It is submitted by the petitioner that in connection with the construction of the said building, it has encroached the Government lease land causing damage to other buildings also. So many representations has been sent to different authorities of each department and legal action was also taken, but the flat is still there at the place, which is a backwater land and such illegal activities are definitely a threat to the livelihood and environment. 5. According to the petitioner, by pointing out the failure of the officers to discharge their statutory duty, the petitioner has preferred Exhibit P9 representation before the Government and the Disaster Management Authority but no action has been taken till date. The Planning authority herein also is liable to be punished and the authority is duty bound to require the 7[th] respondent to restore the land to its original condition as it existed before the development work was undertaken by enforcing the laws of land. Hence this writ petition. 6. Some of the supporting documents filed along with _**W.P(C).34606/2022**_ 5 the writ petition show that they are interdepartmental correspondence, signed by the Hon'ble Minister for LSG, Minority Welfare, Hajj and Waqf, and the Member, Kerala Legislation, Ernakulam. 7. It is trite law that the writ petition against the internal correspondence is not maintainable in law. Reference can be made to a few decisions: (i) In **Bachhittar Singh v. The State of Punjab** [AIR 1963 SC 395], a Constitution Bench of the Hon'ble Supreme Court held as under: “11. The question, therefore, is whether he did in fact make such an order. Merely writing something on the file does not amount to an order. Before something amounts to an order of the State Government two things are necessary. The order has to be expressed in the name of the Governor as required by clause (1) of Art. 166 and then it has to be communicated. As already indicated, no formal order modifying the decision of the Revenue Secretary was ever made. Until such an order is drawn up, the State Government cannot, in our opinion, be regarded as bound by what was stated in the file. ............... 13. Thus, it is of the essence that the order has to be communicated to the person who would be affected by that order before the State and that person can be bound by that order. For, until the order is communicated to the person affected by it, it would be open to the Council of Ministers to consider the matter over and over again and, therefore, till its communication the order cannot be regarded as anything more than provisional in character.” ## (ii) The views expressed in _**Bachhittar Singh's**_ case (cited supra), have been followed in **Laxminarayan R.Bhattad v. State of Maharashtra** , reported in (2003) 5 SCC 413, wherein the Hon'ble Supreme Court held that, a right created under an order of a statutory authority must be _**W.P(C).34606/2022**_ 6 ## communicated to the person concerned, so as to confer an enforceable right. (iii) The said proposition of law has once again reaffirmed in _**Sethi Auto Service Station v. Delhi Development Authority**_ , [(2009) 1 SCC 180], wherein the Hon'ble Apex Court held that internal notings and departmental communications between Government Agencies do not have the sanction of law to be an effective order, unless it culminates into an executable order, by communication to the person concerned, affecting his right or conferring any legal right. (iv) Reliance can also be made to the decision of the Hon'ble Supreme Court in _**Union of India and others v. Vartak Labour Union**_ , reported in (2011) 4 SCC 200.” 8. Keeping above the principles in mind, the copies of documents filed in Xerox mode, being inter departmental correspondence, on the basis of which, no writ petition can be entertained, we direct the petitioner to submit an affidavit setting out the source on the basis of which the documents have been obtained. We also make it clear that the official correspondence or materials can be obtained only under the provisions of the Right to Information Act, 2005 and not otherwise. 9. Some other documents are addressed to M/s.Choice Trading Corporation, represented by its Managing Director, Kochi – the 6th respondent, the petitioner is directed to offer his explanation, as to how he has obtained the above documents. _**W.P(C).34606/2022**_ 7 10. It is made clear that if no sufficient and acceptable explanation is offered by way of an affidavit with supporting documents, the writ petition would be dealt with accordingly. 11. Mr.K.P.Harish - learned Senior Government Pleader, takes notice for the State of Kerala, represented by the Chief Secretary to Government, Thiruvananthapuram, the Principal Secretary to Government, Revenue & Disaster Management Department, Thiruvananthapuram, the District Collector, Ernakulam and the Thoppumpady Village Officer - respondents 1, 2, 3 and 5 respectively. Learned Standing Counsel - Mr.K.Janardhana Shenoy takes notice for the Cochin Municipal Corporation, represented by its Secretary, Kochi – respondent No.4, and directed to ascertain as to how these documents have been issued, whether under the RTI Act or not? Notice by speed post to respondent Nos.6 and 7, returnable in two weeks. Post on 9.11.2022.” 2. When the matter came up for hearing on 19.01.2023, petitioner filed I.A. No.1 of 2022 for extension of time by one month, to produce the substantiating documents to reveal the source of Exhibit P5 document, on the basis of which the writ petition has been filed and after the filing, one month time was sought for. 3. That apart, Mr. Janardhana Shenoy, learned Standing Counsel for Cochin Corporation, has submitted that Exhibits P3 _**W.P(C).34606/2022**_ 8 and P4 documents are not issued under the Right to Information Act, 2005, by the Corporation. In such circumstances, vide order dated 19.01.2023, while declining to grant one month's time as prayed for, we directed the petitioner to produce evidence i.e., as to whether the document is obtained under the Right to Information Act, 2005, within one week from 19.01.2023. 4. Today, in the forenoon, proxy representation was made for adjournment, on behalf of learned counsel on record. When the matter was directed to be posted in the afternoon and taken up, Ms. C. S. Nikita Nair, learned counsel for the petitioner, is raising a stand that she has supporting material and would file the same later. We are not inclined to grant any more time. 5. On the aspect of Public Interest Litigation, in **C.K. Varghese v. The Secretary Cheranalloor Panchayat and Ors.** [W.P(C) No.15780 of 2021 dated 05.08.2021], this Court has summarised the decisions of the Hon’ble Supreme Court, as regards the principles with respect to filing of a Public Interest Litigation, which reads as under: “In **Guruvayur Devaswom Managing Committee & Anr. v.** _**W.P(C).34606/2022**_ 9 ## **C.K.Rajan & Others** [(2003) 7 SCC 546], the Hon'ble Apex Court held as under: “(i) The Court in exercise of powers under Article 32 and Article 226 of the Constitution of India can entertain a petition filed by any interested person in the welfare of the people who is in a disadvantaged position and, thus, not in a position to knock the doors of the Court. The Court is constitutionally bound to protect the fundamental rights of such disadvantaged people so as to direct the State to fulfill its constitutional promises. [See **S.P. Gupta v. Union of India, People's Union for Democratic Rights v. Union of India** (1982) 2 SCC 494 **, Bandhua Mukti Morcha v. Union of India and Others (1984) 3 SCC 161 and Janata Dal v. H.S.Chowdhary** (1992) 4 SCC 305)] (ii) Issues of public importance, enforcement of fundamental rights of a large number of the public vis-a-vis the constitutional duties and functions of the State, if raised, the Court treats a letter or a telegram as a public interest litigation upon relaxing procedural laws as also the law relating to pleadings. [See **Charles Sobraj v. Supdt., Central Jail, Tihar, New Delhi (1978) 4 SCC 104 and Hussainara Khatoon and Others v. Home Secretary, State of Bihar** (1980) 1 SCC 81)] (iii) Whenever injustice is meted out to a large number of people, the Court will not hesitate in stepping in. Articles 14 and 21 of the Constitution of India as well as the International Conventions on Human Rights provide for _**W.P(C).34606/2022**_ 10 ## reasonable and fair trial. In **Mrs. Maneka Sanjay Gandhi v. Rani Jethmalani** (AIR 1979 SCC 468), it was held: "2. Assurance of a fair trial is the first imperative of the dispensation of justice and the central criterion for the court to consider when a motion for transfer is made is not the hypersensitivity or relative convenience of a party or easy availability of legal services or like mini-grievances. Something more substantial, more compelling, more imperilling, from the point of view of public justice and its attendant environment, is necessitous if the court is to exercise its power of transfer. This is the cardinal principle although the circumstances may be myriad and vary from case to case. We have to test the petitioner’s grounds on this touchstone bearing in mind the rule that normally the complainant has the right to choose any court having jurisdiction and the accused cannot dictate where the case against him should be tried. Even so, the process of justice should not harass the parties and from that angle the court may weigh the circumstances.” (See also _Dwarka Prasad Agarwal (D) By Lrs. and Anr. v. B.D. Agarwal and Ors._ (2003) 5 SCALE 138) (iv) The common rule of locus standi is relaxed so as to enable the Court to look into the grievances complained on behalf of the poor, the depraved (sic), the illiterate and the disabled who cannot vindicate the legal wrong or legal injury caused to them for any violation of any constitutional or legal right. [See _Fertilizer Corpn. Kamgar Union (Regd.) v. Union of India, AIR 1981 SC 344, S.P. Gupta (supra), People's Union for Democratic Rights (supra), Dr. D.C. Wadhwa (Dr) v. State of Bihar (1987) 1 SCC 378 and BALCO Employees' Union (Regd.) v. Union of India and Others [(2002) 2 SCC 333_ ] (v) When the Court is prima facie satisfied about variation _**W.P(C).34606/2022**_ 11 of any constitutional right of a group of people belonging to the disadvantaged category, it may not allow the State or the Government from raising the question as to the maintainability of the petition. (vi) Although procedural laws apply to PIL cases but the question as to whether the principles of res judicata or principles analogous thereto would apply depends on the nature of the petition as also facts and circumstances of the case. [See **Rural Litigation and Entitlement Kendra v. State of U.P.** , 1989 Supp (1) SCC 504 and **Forward Construction Co. v. Prabhat Mandal (Regd.), Andheri and others** (1986) 1 SCC 100] (vii) The dispute between two warring groups purely in the realm of private law would not be allowed to be agitated as a public interest litigation. (See **Ramsharan Autyanuprasi v. Union of India and Others** 1989 Supp (1) SCC 251) (viii) However, in an appropriate case, although the petitioner might have moved a court in his private interest and for redressal of personal grievances, the Court in furtherance of the public interest may treat it necessary to enquire into the state of affairs of the subject of litigation in the interest of justice. (See **Shivajirao Nilangekar Patil v. Dr. Mahesh Madhav Gosavi and Others** (1987) 1 SCC 227). (ix) The Court in special situations may appoint a Commission, or other bodies for the purpose of investigating into the allegations and finding out facts. It _**W.P(C).34606/2022**_ 12 may also direct management of a public institution taken over by such Committee. (See **Bandhua Mukti Morchai, Rakesh Chandra Narayan v. State of Bihar** (1989) Suppl 1 SCC 644 and A.P. Pollution Control Board v. Prof. M.V. Nayudu (1999) 2 SCC 718). In **Sachidanand Panday and Another v. State of West Bengal and others** [(1987) 2 SCC 295], this Court held,- “61. It is only when courts are apprised of gross violation of fundamental rights by a group or a class action on when basic human rights are invaded or when there are complaints of such acts as shock the judicial conscience that the courts, especially this Court, should leave aside procedural shackles and hear such petitions and extent its jurisdiction under all available provisions for remedying the hardships and miseries of the need, the underdog and the neglected. I will be second to none in extending help when such is required. But this does mean that the doors of this Court are always open for anyone to walk in. It is necessary to have some selfimposed restraint on public interest litigants." (2). This Court in an unreported judgment dated 30.06.2020 ## in **B. Radhakrishna Menon v. State of Kerala and Ors.** [W.P.(C) No.12109 of 2020], at paragraph 45, held thus: “45. Placing reliance on the above decisions, the learned Senior Government Pleader submitted that a public interest writ petition which lacks bona fides, lack of particulars satisfying the requirements of a PIL, deserves to be dismissed with costs. Having regard to decisions considered in _**Mythri Residents Association v. Secretary, Tripunithura Municipality and Others,** [2019 KHC 832]_ , it has been summarised by the journal thus: “(1) The Courts must encourage genuine and bona fide PIL _**W.P(C).34606/2022**_ 13 and effectively discourage and curb the PIL filed for extraneous considerations. (2) Instead of every individual Judge devising his own procedure for dealing with the public interest litigation, it would be appropriate for each High Court to properly formulate rules for encouraging the genuine PIL and discouraging the PIL filed with oblique motives. Consequently, we request that the High Courts who have not yet framed the rules, should frame the rules within three months. The Registrar General of each High Court is directed to ensure that a copy of the rules prepared by the High Court is sent to the Secretary General of this Court immediately thereafter. (3) The Courts should _prima facie_ verify the credentials of the petitioner before entertaining a PIL. (4) The Courts should be prima facie satisfied regarding the correctness of the contents of the petition before entertaining a PIL. (5) The Courts should be fully satisfied that substantial public interest is involved before entertaining the petition. (6) The Courts should ensure that the petition which involves larger public interest, gravity and urgency must be given priority over other petitions. (7) The Courts before entertaining the PIL should ensure that the PIL is aimed at redressal of genuine public harm or public injury. The Court should also ensure that there is no personal gain, private motive or oblique motive behind filing the public interest litigation. (8) The Courts should also ensure that the petitions filed by busybodies for extraneous and ulterior motives must be discouraged by imposing exemplary costs or by adopting similar novel methods to curb frivolous petitions and the petitions filed for extraneous considerations. (9) The misuse of public interest litigation is a serious matter of concern for the judicial process. (10) Both this Court and the High Courts are flooded with litigations and are burdened by arrears. (11) Frivolous or motivated petitions, ostensibly invoking the _**W.P(C).34606/2022**_ 14 public interest detract from the time and attention which courts must devote to genuine causes. (12) This Court has a long list of pending cases where the personal liberty of citizens is involved. (13) Those who await trial or the resolution of appeals against orders of conviction have a legitimate expectation of early justice. (14) It is a travesty of justice for the resources of the legal system to be consumed by an avalanche of misdirected petitions purportedly filed in the public interest which, upon due scrutiny, are found to promote a personal, business or political agenda. (15) This has spawned an industry of vested interests in litigation. (16) There is a grave danger that if this state of affairs is allowed to continue, it would seriously denude the efficacy of the judicial system by detracting from the ability of the court to devote its time and resources to cases which legitimately require attention. (17) Worse still, such petitions pose a grave danger to the credibility of the judicial process. (18) This has the propensity of endangering the credibility of other institutions and undermining public faith in democracy and the rule of law. (19) This will happen when the agency of the court is utilised to settle extra-judicial scores. Business rivalries have to be resolved in a competitive market for goods and services. (20) Political rivalries have to be resolved in the great hall of democracy when the electorate votes its representatives in and out of office. (21) Courts resolve disputes about legal rights and entitlements. (22) Courts protect the rule of law. (23) There is a danger that the judicial process will be reduced to a charade, if disputes beyond the ken of legal parameters occupy the judicial space.” _**W.P(C).34606/2022**_ 15 6. Following the decisions extracted above and in the absence of any supporting material as to how the petitioner had access to certain documents as stated supra, we are of the view that the petitioner has not made out a _prima facie_ case to entertain the writ petition. Accordingly, this writ petition is dismissed. Pending interlocutory applications, if any, shall stand closed. Sd/S. Manikumar, Chief Justice Sd/Murali Purushothaman, Judge sou.xxxxx _**W.P(C).34606/2022**_ 16 ## **`APPENDIX OF WP(C) 34606/2022`** ## `PETITIONER EXHIBITS` - `EXHIBIT P1 A TRUE COPY ALONG WITH ENGLISH TRANSLATION OF THE LETTER ADDRESSED BY THE SECRETARY, COCHIN CORPORATION TO THE REGIONAL JOINT DIRECTOR, ERNAKULAM ON 12.1.2014.` - `EXHIBIT P2 A TRUE COPY ALONG WITH ENGLISH TRANSLATION OF THE LETTER OF THE REGIONAL JOINT DIRECTOR, URBAN AFFAIRS, ERNAKULAM ADDRESSED TO THE GOVERNMENT ON 23.6.2014.` - `EXHIBIT P3 TRUE COPY OF THE LETTER DATED 23.8.2013, DEMANDING EXPLANATION FROM THE 7TH RESPONDENT.` - `EXHIBIT P4 TRUE COPY ALONG WITH ENGLISH TRANSLATION OF THE LETTER DATED SECRETARY, COCHIN CORPORATION TO THE REGIONAL JOINT DIRECTOR, ERNAKULAM DATED 1.10.2013.` - `EXHIBIT P5 TRUE COPY ALONG WITH ENGLISH TRANSLATION OF THE WRITTEN COMPLAINT GIVEN BY SRI.JOHN FERNANDEZ MLA TO THE MINISTER FOR LOCAL SELF GOVERNMENT INSTITUTIONS.` - `EXHIBIT P6 A TRUE COPY ALONG WITH ENGLISH TRANSLATION OF THE REPORT OF THE SUPERINTENDING ENGINEER, LOCAL SELF GOVERNMENT DEPARTMENT, THIRUVANANTHAPURAM DATED 30.5.2016.` - `EXHIBIT P7 A TRUE COPY OF THE NOTIFICATION BY CENTRAL GOVERNMENT DATED 19.2.1991.` - `EXHIBIT P8 A TRUE COPY OF THE STRUCTURE PLAN (GENERAL TOWN PLANNING SCHEME) FOR THE CENTRAL CITY OF KOCHI IN ERNAKULAM DISTRICT PUBLISHED AS PER G.O.(MS) NO.103/91/LAD DATED 20.3.1991.` - `EXHIBIT P9 A TRUE COPY OF THE REPRESENTATION FILED BY THE PETITIONER BEFORE THE GOVERNMENT AND DISASTER MANAGEMENT AUTHORITY DATED 21.11.2020.`