MAHESH CHANDRA BANERJI Vs U.P.AVAS EVAM VIKAS PARISHAD .
Case number: C.A. No.-004970-004970 / 2010
Diary number: 3963 / 2007
Advocates: M. P. SHORAWALA Vs
PRAVEEN JAIN
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REPORTABLE
IN THE SUPREME COURT OF INDIA CIVIL APPELLATE JURISDICTION
CIVIL APPEAL NO.4970 OF 2010 (Arising out of SLP(C) NO.2639 OF 2007)
Mahesh Chandra Banerji ..Appellant Vs.
U.P. Avas Evam Vikas Parishad & Ors. ..Respondents WITH
CIVIL APPEAL NO. 4971 OF 2010 (Arising out of SLP(C) NO.8019 OF 2007)
Dr. Devesh Chandra Banerji & Anr. ..Appellants Vs.
State of U.P. & Ors. ..Respondents
J U D G M E N T
ALTAMAS KABIR, J. 1. Leave granted.
2. One, Udai Chandra Banerji had two sons, namely,
Suresh Chandra Banerji and Ramesh Chandra Banerji.
On 1st February, 1927, the two brothers jointly
purchased 8848 square yards of land in Khasra Plot
No.2305 situated in Kasba Koli. The said khasra
number was subsequently converted into Plot
No.1002. Although, the purchase was said to have
been made jointly by Suresh Chandra Banerji and
Ramesh Chandra Banerji, the Sale Deed was executed
in the name of Ramesh Chandra Banerji, who was the
elder brother. From the Sale Deed, it would be
evident that a Kothi (building) was in existence
over a part of the said land and the land adjacent
to the building was lying vacant. Certain
additional constructions were raised on the vacant
portions which were completed in the year 1930.
The said property fell within the municipal limits
of Aligarh. On 1st April, 1957, house tax was
imposed for the first time and the name of Suresh
2
Chandra Banerji was recorded in the assessment list
of the house tax payers in the records of the
Municipal Board. In 1930, Ramesh Chandra Banerji
and Dr. Suresh Chandra Banerji shifted into the
Kothi with their families and continued to reside
therein. In 1941, Ramesh Chandra Banerji expired
and after his death, a family settlement is said to
have taken place between Ramesh Chandra Banerji’s
heirs and Dr. Suresh Chandra Banerji, as a result
whereof the family of Ramesh Chandra Banerji
shifted to Kanpur and Dr. Suresh Chandra Banerji
became the exclusive owner of the Kothi in question
and he resided therein along with his family
members till his death on 16th August, 1989. At the
time of his death Dr. Suresh Chandra Banerji left
behind him surviving his sons, Paresh Chandra
Banerji, Dinesh Chandra Banerji, Bhavesh Chandra
Banerji and Umesh Chandra Banerji, who died in
August, 1997.
3
3. Mahesh Chandra Banerji, one of the sons of late
Dr. Suresh Chandra Banerji, claims to have acquired
knowledge that a Development Scheme known as Yojana
No.7 had been taken up by the Avas Evam Vikas
Parishad in 1968 and that a notification under
Section 28 of the Avas Vikas Parishad Adhiniyam,
being U.P. Act No.1 of 1968, had been issued on 5th
October, 1968 and a further notification under
Section 32(i) of the Adhiniyam was issued on 25th
January, 1971, which was published in the Gazette
on 13th February, 1971. Under the said scheme,
along with other lands, the property of late Dr.
Suresh Chandra Banerji in Khasra Plot No.1002, was
also proposed to be acquired. Objections were
filed against the proposed acquisition and in
response thereto the Respondent No.1 decided to
exclude the residential house of the appellants and
the adjoining land from the acquisition. Despite
the same, further representations were made by the
appellants to allow them full frontal access from
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G.T. Road to their residential premises, since they
wanted to establish a nursing home on the said
plot. It appears that a decision was even taken in
that regard and Resolution No. 1/130/79 dated 16th
January, 1979 was accepted by the Respondent No.1-
Parishad and the cost of the said land was fixed at
not less than R.82/- per square metre. According
to the appellants, since the said
resolution/decision was not being given effect to,
and, on the other hand, auction notice was issued
by the Parishad on 23rd August, 1993 for sale of the
acquired lands under the above-mentioned scheme,
they were compelled to file Original Suit No.307 of
1998 before the Civil Judge, Senior Division,
Aligarh, inter alia, praying for the following
reliefs :
“(a) By passing a decree for permanent prohibitory injunction the defendant 1st set be restrained from interfering in the peaceful possession of the plffs. And defendant IInd set over the land shown by
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wards A B C D and red colour shown in the map annexed with the plaint.
(b) By passing a decree for mandatory injunction the defendant No.1 and 5 be directed to remove their encroachment from the land of the plaintiff detailed at the foot of the plaint and to restore it’s position and possession as on the date of suit within the time specified by the court and in failure to do the same be done by agency of court.”
4. Initially, an order of injunction was passed in
favour of the appellants, which was subsequently
vacated on 19th April, 2001. Simultaneously, with
the filing of the aforesaid suit, two of the other
sons of late Dr. Suresh Chandra Banerji, namely,
Shri Dinesh Chandra Banerji and Shri Bhavesh
Chandra Banerji, filed Civil Misc. Writ Petition
No.18132/98 questioning the acquisition
proceedings, but the same was ultimately dismissed
on 12th May, 1999, on account of the pendency of the
suit relating to the same acquisition.
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5. In the meantime, on 5th May, 2000, the
Respondent No.6 became the successful bidder in the
auction conducted by the Respondent No.1-Parishad
in respect of a portion of the acquired lands which
had earlier belonged to the appellants and a sale
deed was also executed in his favour on 5th May,
2000.
6. After execution of the sale deed in favour of
the Respondent No.6, the appellants on 18.7.2001
filed FAFO No.694/2001 against the order by which
the interim order passed in the suit had been
vacated. The High Court of Allahabad granted stay
of the order passed in the suit, but indicated that
the right of the Respondent No.6, Shri Gyanendra
Prashad Varshney, would not be affected by the stay
order. Ultimately, Civil Suit No.307 of 1998 came
to be dismissed as withdrawn on 18th November, 2004,
on the ground that the same had become infructuous.
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7. While the above-mentioned suit was pending, Dr.
Mahesh Chandra Banerjee made a representation to
the Housing Commissioner (C), Uttar Pradesh Housing
& Development Board, Lucknow, on 19th August, 2002,
praying for release of the land belonging to the
applicant and his family members in Plot No.1002.
In response thereto, the District Magistrate,
Aligarh, directed the Additional District
Magistrate (V.R.), Aligarh, to conduct an inquiry
and to submit a report. In his report dated 30th
June, 2004/02.07.2004, the Additional District
Magistrate observed that the house of the applicant
and the land attached to it had been exempted from
acquisition. It was also specifically indicated
that 8848 square yards of the land of the applicant
comprised in the said plot was free from
acquisition. It was further indicated that the
Special Land Acquisition Officer, Agra, had clearly
mentioned that only the lands owned by one Shivdan
Singh had been acquired and that no other land out
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of the total area comprising Plot No.1002 had
either been acquired or had compensation been
determined or had possession been taken thereof.
It was also indicated that despite the above, the
officials of the Housing Development Board,
Aligarh, were selling Dr. Banerji’s land illegally.
8. While, on the one hand, possession of the lands
sold in auction was not being handed over to the
auction purchasers, Shri Sanjai Singh and others,
on the other hand, the report of the Additional
District Magistrate was also not being given proper
consideration for release of the lands which the
Respondent No.1-Parishad had purportedly taken
possession of without the same having been
acquired. Consequently, Sanjai Singh and two
others filed Civil Misc. Writ Petition No.54160 of
2005 before the Allahabad High Court claiming that
they were entitled to be given the possession of
the land in respect of which they were the
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successful bidders in the auction conducted by the
Parishad. They also questioned the demand made by
the Respondent No.1-Parishad by its letter dated
30th April, 2005, asking for interest along with
penalty and stamp fee before physical possession of
the said lands could be made over to them.
Aggrieved by such demand and also by the fact that
possession of the land in respect of which they
were the successful bidders was not being made over
to them, the said writ petitioners, Sanjai Singh
and others, inter alia, prayed for quashing of the
impugned demand dated 30th April, 2005, made on
behalf of the Respondent No.1-Parishad and also for
a direction upon the said respondent to immediately
deliver possession of Plot No.C-2/A, G.T. Road,
Yojana, Aligarh, within a time period to be fixed
by the court, after accepting the original amount
as determined by allotment order dated 17th May,
2000 and also to execute the sale deed in their
favour.
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9. On the other hand, Dr. Dinesh Chandra Banerji
and Mahesh Chandra Banerjee filed a separate Writ
Petition No.43552/2004 against the Respondent-Avas
Evam Vikas Parishad and the auction purchasers for
a direction in the nature of Mandamus commanding
the Respondent-State and the Avas Evam Vikas
Parishad to give effect to the inquiry report dated
2nd July, 2004, submitted by the Additional District
Magistrate (V.R.), Aligarh.
10. The Writ Petition filed by Sanjai Singh and
others came to be disposed of by the Division Bench
of the Allahabad High Court on 6th October, 2005,
inter alia, with a direction that in the event the
writ petitioners deposited the entire outstanding
dues, excluding the penal interest, within a period
of four weeks from the date of the order, the
respondents would hand over the possession of the
property in dispute to them within a period of two
weeks thereafter. The Respondent No.1-Parishad was
11
also requested to decide the representation of the
petitioners with regard to the penal interest by a
speaking and reasoned order within six weeks from
the date of filing of a certified copy of the
order. It was also indicated that in case the
petitioners had not filed their representation
before the appropriate authority, they could do so
within a week from the date of the order before the
Housing Commissioner, U.P. Avas Evam Vikas
Parishad, Lucknow, and the same would be dealt with
in accordance with law.
11. After the said order was passed, Dr. Mahesh
Chandra Banerji filed Civil Misc. Recall
Application No.81128/2006 praying for recall of the
aforesaid judgment and order on the ground that the
same had been obtained by concealing material facts
and that the order adversely affected the applicant
who was not even impleaded as respondent in the
writ petition, though, he was a necessary party.
12
The said application was dismissed on 12th December,
2006, on the ground that the process of the court
was being misused by denying possession of the
lands which had been allotted in favour of the
auction purchasers and that attempts were being
made to misguide the court in order to hold on to
the possession which had already vested in the
State under Section 16 of the Land Acquisition Act,
1894. Consequently, by an order of 12th December,
2006, Writ Petition No.43552 of 2004, which had
been filed by the petitioners in SLP(C)No.8019 of
2007, was dismissed on the ground that the case was
clearly covered by the judgment passed in the
Recall Application filed by Mahesh Chandra Banerji
in Writ Petition No.54160 of 2005 filed by Sanjai
Singh and others.
12. SLP(C) No.2639 of 2007 has been filed by Dr.
Mahesh Chandra Banerji against the order dated 12th
December, 2006, whereby his application for recall
13
of the judgment delivered in Writ Petition No.54160
of 2005 was rejected. SLP(C) No.8019 of 2007 has
been filed by Dr. Devesh Chandra Banerji and Mahesh
Chandra Banerji against the final order dated 12th
December, 2006, whereby Writ Petition No.43552 of
2004 was rejected.
13. The main contention of Mr. Rajiv Dutta, learned
Senior Advocate, who appeared for the appellants in
both the Civil Appeals, was that only a part and
not the whole of Plot No.1002, which, according to
him, measured 15 bighas and 10 biswa had been
acquired for the scheme (Yojana No.7) undertaken by
the Respondent-Parishad. It was urged that out of
the total area comprising the aforesaid plot,
possession had been taken only of 6 bighas and 17
biswa, which belonged to one Shivdan Singh, in
whose name compensation had been awarded by the
Collector. In fact, it was Mr. Dutta’s stand that
14
no part of the appellants’ land in Plot No.1002 had
been acquired for the aforesaid scheme.
14. Mr. Dutta relied heavily on the report
submitted by the Additional District Magistrate
(V.R.), Aligarh, dated 30th June, 2004/02.07.2004,
in regard to the inquiry conducted by him on the
representation made on behalf of the appellants
wherein reference had been made to the report of
the Special Land Acquisition Officer, Agra,
indicating that out of Plot No.1002 only the land
owned by one Shivdan Singh had been acquired and
that any other land had neither been acquired nor
had compensation been determined nor had possession
been taken. On the other hand, the actions of the
officials of the Housing Development Board,
Aligarh, were deprecated. Mr. Dutta pointed out
that a categorical finding had been arrived at by
the Additional District Magistrate (V.R.), Aligarh,
that the officials of the Housing Development Board
15
had allotted Dr. Banerji’s land illegally without
acquiring the same and without making payment of
compensation. Mr. Dutta submitted that having
taken note of the high-handed and arbitrary action
of the officials of the Housing Development Board,
the Additional District Magistrate had recommended
that the equivalent extent of land of Dr. Banerji,
which had been arbitrarily allotted to others,
should be made available to Dr. Banerji’s family.
15. Mr. Dutta further submitted that although
initially there was a proposal to acquire the
entire land comprising Plot No.1002, subsequently
on representations being made, the said proposal
was dropped and, in fact, a resolution was adopted
by the Respondent-Parishad to exclude the building
and land of the Banerjis from the scope and ambit
of the acquisition proceedings. Mr. Dutta
submitted that the controversy began when some of
the lands owned by the appellants in the plot in
16
question were forcibly occupied and sold, allegedly
in pursuance of the above-mentioned Yojana No.7.
Mr. Dutta submitted that as will be evident from
the proceedings conducted by the Collector in
regard to the acquisition of Plot No.1002, there is
no mention whatsoever of the land of the Banerji
family having been acquired or compensation having
been assessed therefor. It was urged that this
would clearly establish that no part of the lands
under the occupation of the Banerji family in the
plot in question had been acquired for the above-
mentioned Scheme. Mr. Dutta submitted that although
an attempt has been made on behalf of the
Respondent-Parishad to muddy the waters by claiming
that the lands of the Banerji family had also been
included in the 6.17 bighas in respect of which
compensation had been awarded, there was no
evidence of such assertion since the proceedings
were confined only to the lands belonging to the
property of Shivdan Singh. It was also pointed out
17
that no compensation had either been awarded or
paid to the members of the Banerji family and
hence, the case made out on behalf of the Parishad
that the land belonging to the Banerji family in
Plot No.1002 had also been acquired, has no basis
whatsoever.
16. Mr. Dutta urged that in view of the detailed
inquiry conducted by the Additional District
Magistrate (V.R.), Aligarh, and the report
submitted by him on the basis thereof, the impugned
order passed by the Division Bench of the Allahabad
High Court on the Recall Application filed on
behalf of the appellants herein, was liable to be
set aside and the matter was liable to be remanded
to the Division Bench of the High Court for fresh
consideration.
17. Mr. Dinesh Dwivedi, learned senior counsel,
appearing for the Respondent-Parishad and its
Authorities, referred to the reliefs prayed for by
18
Dr. Mahesh Chandra Banerji and Dr. Devesh Chandra
Banerji in Original Suit No.307 of 1998 which was
ultimately dismissed as infructuous. Mr. Dwivedi
submitted that the suit was for injunction
simplicitor to restrain the Parishad from
interfering with the possession of the plaintiffs
in the lands forming the subject matter of the suit
and also for mandatory injunction on the Defendant
Nos.1 and 5 to remove encroachments from the said
lands and to restore its position and possession as
on the date of the suit. It was submitted that the
plaintiffs chose to abandon the suit on account of
the writ petition which had been separately filed
in respect of the same land, inter alia, for
implementation of the report of the Additional
District Magistrate (V.R.), Aligarh, dated 2nd July,
2004, submitted to the District Magistrate,
Aligarh. Mr. Dwivedi submitted that the aforesaid
report did not give an accurate picture of the
acquisition proceedings since the lands measuring
19
6.17 bighas in respect of which possession had been
taken by the Parishad, was not confined to the
lands of Shivdan Singh alone, but also included
some of the lands comprising the lands of the
Banerji family as well. Mr. Dwivedi referred to the
status of the land comprised in Plot No.1002 shown
in the letter addressed by the Executive Engineer,
U.P. Housing and Development Board on 9th February,
2004 to the District Magistrate, Aligarh.
18. From the contents of the said letter, Mr.
Dwivedi pointed out that out of the total lands
comprising Plot No.1002, the land comprising the
Pisawa House was excluded from the acquisition
along with Dr. Mahesh Banerji’s Kothi and the open
land towards North-32 ft., towards South-32 ft.,
towards East-12 ft. and towards West-52 ft.
measuring 1-1-10 bighas and a further 0-14-2 bighas
on which Smt. Angoori Devi’s Kothi was situated.
Mr. Dwivedi submitted that according to the
20
aforesaid facts, the stand taken on behalf of the
appellants on the basis of the report of the
Additional District Magistrate (V.R.), Aligarh,
that no portion of the lands belonging to the
Banerji family had been acquired, was wrong and not
supported by the record. In fact, Mr. Dwivedi
pointed out that while assessing compensation for
the 6.17 bighas of land in respect whereof
possession had been taken, the Collector was alive
to the fact that the entire lands did not belong to
Shivdan Singh alone, as alleged, and the same would
be evident from the Award, wherein compensation had
been assessed in favour of Shivdan Singh, etc. It was submitted that apart from Shivdan Singh, the
lands of the Banerji family had also been included
in the acquisition.
19. The submissions made on behalf of the Parishad
were also adopted by Mr. R.K. Dash, learned Senior
Advocate for the State of Uttar Pradesh. The
21
categorical stand taken by learned counsel was that
the views expressed by the Additional District
Magistrate (V.R.), Aligarh, were contrary to the
records, as mentioned by the Executive Engineer,
U.P. Housing and Development Board in his letter
dated 9th February, 2004, addressed to the District
Magistrate, Aligarh.
20. Mr. L. Nageshwara Rao, learned Senior Advocate,
who appeared for Respondent Nos.4 to 6, firstly
referred to the notice published by the Respondent-
Parishad under Section 28 of the U.P. Avas Evam
Vikas Parishad Adhiniyam, 1965, wherein the area to
be comprised in the G.T. Road Bhoomi Vikas Yojana
was specified and objections were invited within 30
days from the date on which the notice was first
published in the Uttar Pradesh Gazette, i.e., 5th
October, 1968. Mr. Rao submitted that no objection
had been filed on behalf of the Banerjis within the
specified time and the representation on the basis
22
of which the inquiry was conducted by the
Additional District Magistrate (V.R.), Aligarh, was
made as late as on 19th August, 2002. It was
submitted that in the meantime, auction had been
conducted on 30th March, 2000 and allotment letter
had also been issued in favour of the successful
bidders by the Housing Board on 17th May, 2000 and
possession was also given to the three auction
purchasers on 5th April, 2006. Mr. Rao submitted
that the Respondent Nos.4 to 6 were, therefore,
bona fide purchasers for value without notice and
the allotment made in their favour, could not be
disturbed.
21. From the submissions made on behalf of the
respective parties and the materials on record, it
will be apparent that the dispute in this case
centers around the question as to whether barring
1-1-10 bighas of the lands comprising a part of the
property belonging to the Banerji family, which had
23
been excluded from the acquisition, the remaining
portion had also been acquired for the purpose of
Yojana No.7 undertaken by the Respondent-Parishad.
From the calculations as indicated in the report of
the Executive Engineer, U.P. Housing Development
Board, only 1-1-10 bighas of land belonging to the
Banerji family had been excluded from the scope of
the acquisition and as far as remaining lands are
concerned, the same either fall within the 6.17
bighas possession whereof had already been taken,
or the same fell outside the said area which did
not form part of the lands excluded from the ambit
of the acquisition. In either case, the Banerjis
have to be compensated for the said lands in
respect whereof, according to the Banerjis, no
compensation had either been assessed or awarded.
The said conundrum still remains to be solved. No
positive finding has at all been arrived at in this
regard by the acquiring authorities, nor even by
the Collector while making his Award. There is,
24
therefore, some justification in Mr. Dutta’s
submissions that if the lands of the Banerji
family, apart from the lands which had been
excluded from the acquisition, had actually been
acquired for the purpose of Yojana No.7, the same
had to be reflected in the proceedings for
acquisition of the lands and, accordingly,
compensation was required to be paid to the Banerji
family in respect thereof. The general submission
made on behalf of the Parishad and the State that
it was for the Banerjis to prove their title to the
alleged lands comprising 6.17 bighas and to ask for
compensation therefor, does not stand scrutiny in
view of the fact that identity of the lands covered
within the said 6.17 bighas has not been properly
established.
22. The writ court is not ideally situated to
decide such a disputed question of fact. Although,
a description of the lands of the Banerji family
25
which had been acquired, has been given in the
letter written by the Executive Engineer, U.P.
Housing Development Board to the District
Magistrate on 9th February, 2004, the same has to be
considered along with the decision which had been
taken to allow the Banerji family to retain the
lands adjacent to their Kothi upto G.T. Road.
There appears to be a communication gap between the
different authorities of the State Government as
also the Parishad relating to these lands. If a
resolution had been taken to allow the Banerji
family to retain the above-mentioned lands
contiguous to G.T. Road, then the specifications
given in the letter of the Executive Engineer
appear to be incorrect. Whatever be the dispute, a
citizen cannot be deprived of his property except
in accordance with the procedure established by
law. If barring 1-1-10 bighas of land which had
been excluded from the ambit of the acquisition,
the other lands of the Banerji family have actually
26
been acquired and possession thereof been taken,
the extent of the lands so acquired will have to be
established and compensation in respect thereof has
to be paid to the Banerji family. That does not
appear to have been done in this case, thereby
causing prejudice to the appellants. On the other
hand, if the excess lands belonging to the Banerji
family had been included within the 6.17 bighas of
land in respect whereof possession had actually
been taken, the State and the acquiring body have
to identify the said lands for the purposes of
assessing compensation.
23. All the above questions can either be decided
in a properly instituted suit or by the Collector
on a proper inquiry being conducted. We are,
therefore, of the view that in order to put a
quietus to the dispute, the District Magistrate
should conduct a fresh inquiry in order to
determine the extent of the lands of the Banerji
27
family which had been included in the acquisition
proceedings for the purpose of Yojana No.7
undertaken by the Parishad upon giving the affected
parties an opportunity of placing their respective
cases.
24. The District Magistrate, Aligarh is, therefore,
directed to conduct an enquiry in order to
determine the extent of land belonging to the
Banerji family which is said to have been acquired
for the purposes of the scheme covered by Yojana
No.7 undertaken by the Respondent No.1-Parishad and
to also determine as to whether the same was
included in the 6.17 bighas of land possession
whereof had been taken earlier. In the event the
lands have not been included within the ambit of
the acquisition proceedings, as indicated by the
Additional District Magistrate (V.R.), Aligarh,
then, in such an event, the compensation for the
same is to be assessed and Award is to be made in
28
respect thereof, in accordance with law. On the
other hand, if the said lands have been included
within the 6.17 bighas in respect of which
compensation had already been awarded, the District
Magistrate shall, after identification of the lands
of the appellants, apportion the compensation
payable to them and make an Award accordingly.
25. As indicated hereinbefore, in conducting such
an inquiry, the appellants as also the authorities
of the Respondent No.1-Parishad should be given
proper opportunity of placing their respective
cases. Since the acquisition relates back to the
year 1968/1971, such investigation and enquiry
must, however, be completed within six months from
the date of receipt of a copy of this order.
26. The appeals are, accordingly, allowed to the
aforesaid extent, but without any order as to
29
costs. All connected applications shall also stand
disposed of by this order.
________________J. (ALTAMAS KABIR)
________________J. (CYRIAC JOSEPH)
New Delhi Dated: 7th July, 2010.
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