State of Gujarat v. Musamiyaan Imam Haider Bux Razvi and Anr.

A B <: E F H 28 STATE OF GUJARAT _v._ MUSAMIYAN IMAM HAIDER BUX RAZVJ AND ANR. ETC. ETC. _April_ 14. 1976 [A. N. RAY, CJ., M. H. BEG AND JASWANT SINGH, JJ.] _Land Acquisition Acts,_ _1894-Secs._ 4, 6 _and_ _48-Whether_ _cancelling Sec. 6_ _nJti/icatir;n an1ounts to_ _withdrawal_ _from_ _acquisition-On cancellation_ _of_ _Sec._ 6 _11oti/icatio11_ _whether Sec._ 4 _noti/icatiotJ gets_ _exhausted-fVlzither second_ _Sec._ 6 _notilica11on_ _can_ _be_ _issued-Acquisition for a cooperative society_ _if_ _for_ _a_ _public purpose ._ The Goverhmcnt of Gujarat issued a notification under section 4 of the Land Acquisition Act, 1894. The validity of the said notification was challenged by the owners of the land. The Government later issued a notification under section 6 of the Land Acquisition Act after holding enquiry under section _SA._ The owners of the land challenged the said notification under section 6 by filing another Writ Petition. Thereafter the award was made by the Land Acquisition Officer. The Government sanctioned a sum of Re. 1/- towards cost of acquisition. The acquisition was for the purposes of a Cooperative Housing Society. Later on, the Government passed a resolution in supersession of the earlier resolution and sanctioned a sum of Rs. 500/- towards cost of acquisilion. The Government considered section 6 notification to be illegal and invalid and cancelled the same and issued a fresh notification under section 6 in respect of the same land. The owner of the 1and filed a further Writ Petition challenging the notification by which the earlier section 6 notification wa~ cancelled and a fresh se.ction 6 notification was issued. -rhe High Court dismissed the Writ Petition against the first section 6 notification as infructuous. The High Court allowed the other Writ Petition against tihe second section 6 notification and quashed it on the ground tha the cancellation of the first section 6 notification would in any event, tantamount to withdrawal from ncquisi· tion and secondly sihce sCction 4 notification was exhausted by the fin;t section 6 notification no S4.Ibsequent notification under ~-ection 6 of the Act could thereafter be issued. Allowing the appeal by certificate HELD : 1. Acquisition of land for Cooperative Housing Society i:'i for a public purpose as laid down by"this Court in _Ratilal Shankarbhai and Ors._ v. _State_ _of_ _Gujarat_ A.I.R. 1970 SC 984. [31-C] 2. The contention that the cancellation of the first section 6 notification amounts .to ¥'i•hdrawa1 from acquisition and no subsequent notification under section 6 of the Act can thereafle'r be issued without a fresh notification under section 4 of the Act canorlt be countenanced in view of the decis ·on of this Court in _Girdhnri_ _Lal_ _Amratlal Shodan_ _and_ _Ors._ v. _State_ _of_ _Gujarat_ reported in [1966] 3 SCR 437, when a notification under section 6 of the Act is invalid the Government may treat it as ineffective and issue in its p1ace a fresh notification under section 6 and that nothing. in section 48 of the Act precludes the Government from doing so. The cance11ation of the earlier notification is only a recognition of the invalidity of that notification anct does not amount to withdrawal from acquisit'<m. [31-C-D] CIVIL APPELLATE JURISDICTION : Civil App~ls Nos. 1870 and 1871 of 1970 and 1445 of 1971. Appeal from the Jud.gmen\ Gujarat High Court in Special 1441 /66 respectively and # ' ' and Order dated 25-4-1969 of the Civil Appeals Nos. 2l 8/6R and GUJARAT STATE _v._ M. IMAM _(Jaswant Singh,_ J.) 29 _D._ _V. Patel_ and _M._ _N._ _Shroff,_ for the appellants in all the appeals. A _S._ _T. Desai_ (In CA 1871), _P._ _H._ _Parekh_ & _Manju Jelley_ for Respondents. _S._ _M._ _Jain,_ _S._ _K. Jain_ and _lnder_ _Makwana_ for Respondent l in CAs. 1871 and 1445. B _P._ _K._ _Pillai_ for Respondent 2 and 3 in CA 1871. l The Judgment of the Court was delivered by ' t JASWANT SINGH, J. These three appeals Nos. 1870 of 1970, Court of Gujarat 1871 of 1970 and 1445 of 1971 by certificate granted hy the High at Ahmedabad under Article 133 ( 1) (b) & ( c) of c the Constitution of India against its common judgment and order dated April 25, 1969 shall be disposed of by this judgment. ###### the Constitution of India against its common judgment and order dated April 25, 1969 shall be disposed of by this judgment. The facts giving rise to these appeals are : On May 20, 1961, the Government of Gujarat issued a notification und,er section 4 of the Land Acquisition Act, 1894 (hereinafter referred to as 'the Act') de- B ~ daring that certain pieces of land in village Vasana, Ta,Juka City, District Ahmedabad specified in Schedule thereto were likely to be _)_ needed for a public purpose _viz._ for construction of houses for memhers of Yogeshwarnagar Co-operative Housing Society Limited, Ahmedabad. On June 18, 1962, respondent No. 1 in Civil Appeal No. 1445 of 1971, owners of some pieces of the aforesaid land filed 4 Special Civil Application _No._ 564 of 1962 in the High Court of E Gujarat under Article 226 of the Constitution challenging the validity of the aforesaid notification dated May .20, 1961 made under section 4 of the Act and seeking to restrain the Government from proceeding further with the acquisition proceedings contending _inter alia_ that the land could not be acquired for the benefit of the Company in which the public was not directly interested. Interim injunction sought by tl.1e petitioner in that petition having been refused, the Additional F # Special Land Acquisition Officer, Ahmedabad, appellant No. 2 in these appeals proceeded to hold the requisite enquiry under section SA of ' whereof the latter issued a notification under section 6 of the Act on the Act and submitted report to the Government on a consideration .. April 29, 1963. The notification _inter_ _alia_ stated that the lands men tioned in the Schedule thereto were needed to be acquired at the pub J lie expense for the public purpose specified in column 4 of the Schedule G to the notification _viz.,_ the scheme undertaken by Shri Yogeshwarnagar Co-operative Housing Society Limited with the sanction of the Government. Notices under section 9(i) of the Act were served and the Special Land Acquisition Officer after holding the requisite enquiry made an award on December 21, 1963 determining the amount of compensation payable by the Government to the owners of the land. H On demand beiug made for possession of land, respondent No. I in ,i Civil Appeal No, 1870 of 1970, who is the owner of some pieces of land sought to be acquired brought another Special Civil Application J A **B** c **D** E **F** G **H** 30 SUPREME COURT REPORTS [1976) SUPHEMENTARY No. 1100 of 1963 under Article 226 of the Constitution in the High Court challenging the ~foresaid notification under sections 4 and 6 of the Act and on his application. the High Court passed an interim order restraining the Government from taking possession of the iands. On April 15, ! 966, the Government of Gujarat in supersession of the earlier resolution dated December 21, 1962 whereby it had sanctioned rupee one towards the cost of acquisition, passed another resolution sanctioning contribution of Rs. 500/- towards the cost of acquic.ition. Considering that the notification dated April 29, 1963, issued by it under section 6 of the Act was illegal and invalid, the Govcrnnrcrrt of Gujarat by notification dated April 28, 1966, cancelled its •.·arher notification dated April 29, 1963 issued under section 6 of the Act and issued a fresh notification in respect of the same pieces of land under section 6 of the Act on June 6, 1966. Respondent No. _1_ in Civil Appeal No. 1445 of 1971 and petitioner in Special Civil Application No. 564 of 1962 thereupon amended its application with the leave of the Court so as to include a chaUenge to the validity of the fresh notification under section 6 of the Act; The petitioner in the aforesaid Special Civil Application No. 1100 of 1963 did not amend his applica tion but filed a fresh petition under Article 226 of the Constitution being Special Civil Application No. 218 of 1968 challenging the fresh notification under section 6 of the Act. Yet another petition under Article 226 of the Constitution being Special Civil Applicauon No. 1441 of 1966 was filed in the High Court on November 20, 1966 by respondent No. _1_ in Civil Appeal No. 1871 of 1970 challenging **the** validity of the fresh notification dated June 6, 1966 issued under section 5 of the Act. All these petitions were heard together. While the High Court by common judgment dated April 25, 1969 dismissed petition No. 1100 of 1963 as infructuous in view of the fresh notification under section 6 of the Act, it allowed the other three aforesaid petitions following its earlier decision in Special Civil Application Nos. 316, 625 and 811 of 1965 and quashed the fresh notification dated June 6. 1966 issued by the Government of Gujarat under sectinn 6 of the Act holding _inter_ _alia_ that the "cancellation of the first section 6 notification would, in any event, tantamount to withdrawal from acquisition and no subsequent notification under sectic:m 6 0f the Act could, thereafter be issued without a fresh notification under section 4 of the Act." The appellants thereupon applied for and obtained certificate referred to above. It is how these appeals are before us. Although two important points were raised in the aforesaid writ petitions _viz._ ( 1) whether the acquisition of land for Co-operative Housing Society is a public purpose and (2) whether the Government could cancel the notification dated April 29, 1963 issued by it under section 6 of the Act and issue a fresh notification dated April 28, 1966 under the said section of the Act. the first point does not survive and has rightly not been canvassed before us in view of the decisions of this Court in _Ratilal Shankerbhai_ _&_ _Ors._ v. _Slate_ _of_ _Gujarat_ & _Ors.!') Pandit Jhandu Lal_ _&_ _Ors._ v. _The State af Punjab(')_ and _Ram_ (1) A. I. R. 1970 S. C. 984 (2) [1961] '.! s. _c._ 1~ 459. **j** ##### ### _-{_ _, GUJARAT STATE _v._ M. IMAM _(Jaswant Singh,_ _l.)_ 31 _Swarup_ v. _The District Land Acquisition Officer, Aligarh_ & _Ors.(')_ In these cases, it has been made clear that ordinarily the Government is the best authority to determine whether the purpose in questit>n is a public purpose or not; it cannot be contended that a housing scheme for a limited number of persons cannot be cons<dercd as a public purpose; and the need of a section of the public may be a public purpose. The second contention raised on behalf of the contesting respondents that the cancellation of the first section 6 notification amounts to withdrawal from acqu:sition and no subsequent notification under section 6 of the Act can thereafter be issued without a fresh notification under section 4 of the Act cannct be countenanced in view ot the decision of this Court in _Girdharilal Amratlal Shodan and Ors._ v. _State_ _of_ _Gujarat and_ _Ors.(')_ where it was categorically held that when a notification nuder section 6 of the Act is invalid, the Government may treat it as ineffective and issue in its place a fresh notification under section 6 and that nothing in section 48 of the Act precludes the Government from doing so and that the canceHation of the earlier notification is only a recognition of the invalidity of that notification. The following observations made therein are apposite : "Counsel for the. appellants next submitted that on issuing the notification dated July 18, 1961 (under section 6), the power of the State Government to issue a notification under section 6 was exhausted and the. Government could not issue a fresh notification under section 6. There is no substance in this contention. The notification dated July 18, 1961 was invalid. By the issue of this notification, the Government had not effectively exercised its power under section 6. In the circumstances, the Government could well issue the fresh notification under section 6 dated August 14, 1964." No help can be derived by the contesting respondents from the decision of this Court in _State_ _of_ _Madhya Pradesh and Ors._ v. _Vishnu_ _Prasad Sharma and Ors.(_ _[3 ]_ _)_ which turned on another point. In that case after the issue of the notification under section 4 ( 1) of the Act, a number of nofficat'ons in respect 0f _different items_ _of_ _land included_ _in the locality_ specified in the notification under section 4 ( 1) of the Act were issued under section 6. The following observations made in that case are pertinent : "But as we read these sections _(viz._ sections 4, SA and 6) together we can only find that the scheme is that section **4** specifies the •locality, then there may be survey and drawing of maps of the land and the consideration, whether the land is adapted for the purpose for which it has to be acquired, followed by objections and making up of its mind by the Government that what particular land out of that locality it needs. This is followed by a declaration under section 6 **(I)** **A.** **(.** **R.** **1972** **S.** **C.** _**22GO.**_ (2) [1956]' s. _c._ '1. 437. (3) fl966] c S. C.R. 557. **A** **B** c **D** **E** **F** G **H** ~ . #### ## ' A B c 32 SUPREME COURT REPORTS (1976] SUPPLEMENTARY 6pecifying the particular land needed and that in our opinion completes the process ....... At the stage of section 4 the land is not particularised but only the locality is mentioned at the stage of section 6 the land in the locality is particularised ....... The sequence of events from a notificatiun of the intention to acquire [section 4(1)] to the declaration under section 6 unmistakably leads one to the reasonable conclnsion that when once a declaration under section 6 particularising the area out of the area in the locality specified in the notification nnder section 4(1) is issued, _the remaining_ _11011-_ _particularised area stands automatically released''._ Tum in view of the decision of this Court iu _Girdharilal A mratlal_ _Shoda11'3_ case (supra), the impugned judgment of the Gujarat High Court cannot be allowed to stand. In the result, the appeals are allowed and the said judgment of the High Court is quashed. The parties are left to bear and pay their own costs in these appeal~. P.H.P. _Appeals allowed._