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PETITIONER: JAI NARAIN & ORS. ETC. ETC.

       Vs.

RESPONDENT: UNION OF INDIA & ORS.

DATE OF JUDGMENT29/11/1995

BENCH: KULDIP SINGH (J) BENCH: KULDIP SINGH (J) AHMAD SAGHIR S. (J)

CITATION:  1996 AIR  697            1996 SCC  (1)   9  JT 1995 (9)   323        1995 SCALE  (6)664

ACT:

HEADNOTE:

JUDGMENT:                       J U D G M E N T Kuldip Singh, J.      These transfer  cases  are  the  writ  petitions  under Article 226  of the  Constitution of  India which were filed before the Delhi High Court. The petitioners have challenged the notifications  dated January  6, 1995  and March 9, 1995 under Sections  4, 6  and 17(4) of the Land Acquisition Act, 1894 (the  Act) relating  to the  revenue estate  of village Nilothi, National Capital territory (NCT) of Delhi.      This Court  is monitoring  the constructions  of Sewage Treatment Plants  (STPs) in  various parts  of Delhi  in the public  interest   proceedings  in  write  petition  (civil) No.4677/85 M.C.  Mehta vs.  Union  of  India  &  Ors.  under Article 32  of the  Constitution of  India. Pursuant  to the directions issued by this Court in M.C. Mehta’s case the NCT - Administration  has issued the notifications dated January 6, 1995  and March  9, 1995  under the  Act which  have been impugned in  the transferred  cases.  Since  this  Court  is seized of  the matter relating to the construction of STP at Keshopur on  the land  in dispute, it was deemed appropriate to transfer  the writ  petitions from  the file of the Delhi High Court to this Court.      The land  in dispute  is being  acquired for  a  public purpose namely  for setting  up of  pumping station/sewerage treatment plant  in villages  Jasola, Nilothi  and Shaffipur Ranola for  the planned development of Delhi. The provisions of sub-Section  (1) of  Section 17 of the Act have been made applicable and  as such the enquiry under Section 5-A of the Act has  been dispensed  with.  The  relevant  part  of  the notification dated January 6< 1995 is as under:-      "No. F.  >(46)/94-L&B/LA/298: Whereas it      appears to  the Lt.  Governor, of  Delhi      that the  land is  likely to be required      to be  taken  by  Government  at  public      expense for a public purpose; namely for

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    setting up  of pumping  station/sewerage      Treatment plant  in village  Jasola  for      the planned  development of  Delhi,it is      hereby notified  that the  land  in  the      locality described below is likely to be      required       for       the       above      purpose..........The Lt.  Governor being      of  opinion   that  provisions  of  sub-      section (1)  of Section  17 of  the said      Act are  applicable  to  this  land,  is      further pleased  under sub-section  4 of      the said  section  to  direct  that  the      provisions  of  section  5-A  shall  not      apply." Section 4 of the Act to the relevant-extent is reproduced:-      "4.    Publication     of    preliminary      notification  and   powers  of  officers      thereupon.-(1) Whenever  it  appears  to      the [appropriate  Government] that  land      in any locality [is needed or] is likely      to   be    needed   for    any    public      purpose........." Mr. N.S.  Vasisht, learned  counsel for  the petitioners has challenged the  acquisition  proceedings  on  the  following grounds:-      [1] The  notification under Section 4 of      the Act  uses the  expression "likely to      be needed"  which  means  there  was  no      existing need  and the land was required      some time  in  the  future.  There  was,      thus,  no   urgency  and   as  such  the      provisions of  Section 17(4)  of the Act      could not  be invoked  and the  right of      the land owners to file objections under      Section 5-A  of the  Act  could  not  be      taken away.  It further  indicates  that      there was  no application of mind on the      part of the Lt. Governor of NCT; [2] The      land in  dispute is  shown in the Master      Plan  and   Zonal  Development  Plan  as      agricultural green  whereas it  is being      acquired  for   the  public  purpose  of      setting up  the STP.  The acquisition is      contrary to  the  Master  Plan  and  the      Zonal Development Plan. The first  contention raised by the learned counsel is based on the  language of  Section 4  of the  Act. The power under Section 4 of the Act can be exercised when it appears to the Government that  the "land  in any  locality is needed or is likely to  be needed for any public purpose". It is no doubt correct  that  the  expression  "is  needed"  indicates  the existing need  whereas  the  expression  "is  likely  to  be needed" refers to the future need. When the later expression is used  in the  notification under  Section 4 of the Act it may be  suggestive  of  the  fact  that  there  may  not  be emergency to  acquire the  land, but the question of urgency cannot be  determined solely  by the expressions used in the notification under  Section 4 of the Act. The emergency must be reflected  in the  need of the acquisition. The existence of urgency  is a  matter which  is  entirely  based  on  the subjective satisfaction of the Government. The courts do not interfere unless the reasons given are wholly irrelevant and there is  no application  of mind. When a notification under Section 4  of the  Act uses  the expression "is likely to be needed" it may be necessary, in a given case, to examine the

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records or the attendant circumstances to satisfy that there was material  before the  Government  justifying  the  Order under Section  17, dispensing with the provisions of Section 5-A of  the Act.  If the  public purpose  on the  face of it shows that  the land  is needed urgently,that by itself is a relevant  circumstance   for  justifying  the  action  under Section 17(4)  of the  Act. This  Court in State of U.P. vs. Smt.Pista Devi and others, etc.etc. AIR 1986 SC 2025 - where urgency provisions  were invoked  to acquire  the  land  for housing schemes - held as under:-      "In the  circumstances of  the  case  it      cannot be  said that the decision of the      State  Government  in  resorting  to  S.      17(1) of  the Act  was unwarranted.  The      provision of  housing  accommodation  in      these  days   has  become  a  matter  of      national urgency.  We may  take judicial      notice of this fact. Now it is difficult      to hold  that in the case of proceedings      relating  to  acquisition  of  land  for      providing house  sites it is unnecessary      to invoke  S.17(1) of  the  Act  and  to      dispense with the compliance with S. 5-A      of the Act." The land  in dispute  is being acquired for the construction of STP.  This Court  in M.C.  Mehta’s  case  (supra),  while directing the  closure of  the stone crushers in the city of Delhi, on May 15,1992 observed as under:      "We  are  conscious  that  environmental      changes are  the inevitable  consequence      of   industrial   development   in   our      country,  but   at  the  same  time  the      quality   of   environment   cannot   be      permitted to be damaged by polluting the      Air, Water  and Land  to such  an extent      that it  becomes a health-hazard for the      residents   of    the   area.   We   are      constrained   to   record   that   Delhi      Development     Authority,     Municipal      Corporation    of    Delhi,    Municipal      Corporation    of     Delhi,     Central      Corporation  Control   Board  and  Delhi      Pollution Control  Committee  have  been      wholly re-miss  in  the  performance  of      their statutory  duties and  have failed      to protect  the environments and control      air-pollution in  the Union Territory of      Delhi. Utter  disregard  to  environment      has  placed   Delhi  in   an  unenviable      position  of  being  the  world’s  third      grubbiest, most  polluted and  unhealthy      city as  per a  study conducted  by  the      World Health  Organisation. Needless  to      say that  every citizen  has a  right to      fresh air  and to live in pollution-free      environment. While dealing  with the construction of STP’s in Delhi, this Court in  Mehta’s case  passed the  following order on April 22, 1994:      "The  Delhi  Development  Authority  has      filed an affidavit through its Secretary      Mr. V.N.  Bansal. It  is stated that the      Authority  is   ready  and   willing  to      provide land  to the  M.C.D. for setting      up  of   the  Sewage   Treatment  tanks.

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    Keeping  in  view  the  urgency  of  the      matter, we  request Mr.  Subhash Sharma,      Commissioner, M.C.D.,  Mr. S.P.Jkhanwal.      Vice Chairman,  D.D.A., Mr. Ashok Kumar,      Additional Commissioner,  Water and  Mr.      JK Mathur,  Chief Engineer  of the Delhi      Water   Supply   and   Sewage   Disposal      Undertaking to  be present  in Court  on      May  6,  1994.  We  are  requesting  the      officers to  be present in Court so that      we can have their view points for taking      appropriate  decisions   on  the   spot.      Needless to  say that  with the increase      of population  in Delhi  it is of utmost      urgency to  set up  the sewage Treatment      Plants within the time-bound Schedule." Thereafter, on  May  13,  1994  this  Court  issued  various directions regarding the transfer of land to the Delhi Water Supply and Sewage Disposal Undertaking (the Undertaking) for the STP’s in Delhi and finally directed as under:      "We direct  the D.D.A through Mr.S. Roy,      Commissioner. Lands  to  hand  over  the      possession of  the vacant land available      for setting  up of  the Sewage Treatment      Plants in  various colonies  within four      weeks from  today. We further direct the      M.C.D. to  make payment  in  respect  of      these  lands   simultaneously.  Mr.   S.      Prakash,   Engineer-in-Chief   will   be      responsible for taking over the land and      also for making payment to the D.D.A. on      behalf  of   the  M.C.D.  The  work  for      setting up  of Sewage  Treatment  Plants      shall be completed at war-footing." This Court  on August  1,1994, noticed  the progress made in the construction of the SPT’s in the following words:      "Mr. Kapil Sibal, learned senior counsel      appearing for the Delhi Water Supply and      Sewage Disposal Undertaking has produced      before  us  a  chart  showing  tentative      schedule of completion and commissioning      of Sewage  Treatment Plants  in  various      areas in  Delhi. It  is stated  that the      first    appraisal     is    the    soil      investigation. The soil investigation is      to be  done by the Investigating team of      the Undertaking  within four  weeks from      today.  In   any  case,  we  direct  the      Undertaking to  complete it  within four      weeks. Thereafter, the Undertaking shall      float and  finalise the tenders within 6      weeks.      The progress  report and the name of the      company/person  whose  tender  would  be      accepted  shall  be  submitted  to  this      Court by 24.10.94. List it on 24.10.94." Regarding the  STP in  Okhla area  it  was  found  that  the dispossession, of  the landowners,  in respect of large area of land under acquisition was stayed by the Delhi High Court in the  writ petitions  filed by  them. This  Court in  M.C. Mehta’s case passed the following order on December 14,1994:      "We directed the D.D.A. to issue notices      through Newspapers consecutively for two      days stating  therein that  the  parsons      who  have   obtained  stay  orders  from

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    various courts  be present in this Court      at 2.00  p.m. on  December 14, 1994. The      notices were  published by the D.D.A. as      directed  by  us.  In  response  to  the      notices,  Mr.   S.M.  Ashri,   Dr.  B.S.      Chauhan, Mr.  Maninder Singh and Mr.L.C.      Chachi, Advocates  are present on behalf      of the  land owners. The only contention      raised  by   the  learned   counsel  for      various  land   owners   is   that   the      Notification under sections 4 and 6 were      issued  in   the  year   1964  and  1966      respectively.  According  to  them,  the      possession of  land is  still with them.      It is  further  stated  by  the  learned      counsel  that   they  are   entitled  to      compensation at the rate of market value      of the land today....      Keeping   in    view   the   facts   and      circumstances of  this case,  we  direct      that 13  writ petitions mentioned in the      public notice published in the Hindustan      Times  dated   November  30,   1994,  be      transferred from the Delhi High Court to      the file  of this Court. These petitions      be listed  for final disposal in the 2nd      week of February, 1995.      Meanwhile, we  vacate  the  stay  orders      granted by  the High  Court in all these      writ  petitions  and  direct  the  Delhi      Administration   to    take   over   the      possession of  the land and hand over to      the  Delhi   Water  Supply   and  Sewage      Disposal Undertaking." Further directions  were issued  to the Delhi Administration on December  14, 1994  to take  over the  land from  DDA and acquire where  necessary for  the STPs  at various  place in Delhi.      This Court  has been  issuing time-bound directions for the procurement  of land  for the  STP’s in various parts of Delhi. The  impugned notifications  regarding  Keshopur  STP were issued  under the  directions of this Court. On January 23, 1995 this Court passed the following order regarding the land in dispute:-      "A very  grim picture  emerges regarding      increase of  pollution in  the  city  of      Delhi from  the two  affidavits filed by      Shri DS  Negi, Secretary  (Environment),      Govt. of  Delhi. He has pointed out that      the population  of Delhi which was about      17 lakh in 1951 has gone up to more than      94 lakhs  as per  the  1991  census.  In      fact, more  than 4 lakh people are being      added to  the population  of Delhi every      year out  of  which  about  3  lakh  are      migrants. Delhi  has been categorised as      the fourth  most polluted  city in world      with   respect   to   concentration   of      Suspended Particular  Metal (SPM) in the      ambient atmosphere  as per  World Health      Organisation Report,  1989. From NEERI’s      annul report 1991 it is obvious that the      major  contributions,   so  far  as  air      pollution  is   concerned,  is   of  the      vehicular traffic  but the industries in

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    the city are also contributing about 30%      of the  air pollution.  So  far  as  the      discharge  of   effluent  in  Yamuna  is      concerned, the  industries are the prime      contributors apart from the MCD and NDMC      which  are   also   discharging   sewage      directly into  the river  Yamuna. We are      dealing  with  the  sewage  problems  in      separate proceedings." Thereafter, on  April 21,  1995 this  Court,  regarding  the construction of STP’s observed as under:      "Treatment  of   sewage  is   of  utmost      importance for  health and for supply of      pure water to the citizens of Delhi. Any      delay in  this respect  is health-hazard      and cannot be tolerated." The land  for Keshav  Pur STP  was not being made available. There was  considerable delay  in completing the acquisition proceeding order:      "So far  as Keshavpur is concerned, land      has to  be acquired  by the  State Govt.      Mr. Arun Jaitley, learned senior counsel      states that although he is not appearing      for the Delhi Administration, yet he has      information that some steps have already      been taken  by the  State Govt. There is      nobody in  the Court  to  assist  us  on      behalf of  Delhi Admn.  We are told that      Mrs. Suman  Swarup is the Secretary, In-      charge of  the Land  and Building Deptt.      We are  prima facie  of  the  view  that      there is obvious inaction on the part of      the Delhi  Admn. in  complying with  our      orders. Before  we take  any  action  in      this respect  we direct Ms. Suman Swarup      to  file  an  affidavit  in  this  Court      within one  week giving  over-all action      the Govt.  has initiated  in respect  of      acquiring land  in setting  up of Sewage      Treatment  Plant   in   Keshavpur.   The      affidavit be  filed  by  1  PM  on  11th      August, 1995.  List the  matter on  11th      August, 1995 at 2 PM." Thereafter, on  August 11,  1995 this Court issued following directions regarding the STP at Keshavpur:      "Pursuant to  this Court’s  order  dated      August  4,   1995  Ms.   Suman   Swarup,      Secretary Land  and Building Department,      Government of National Capital Territory      of Delhi  has filed  an  affidavit.  Ms.      Geeta Luthra,  learned counsel appearing      for  the   Secretary,  Land  &  Building      states that  the necessary procedure for      acquiring  106   Hectares  of   land  in      Keshavpur for  the purpose of setting up      of Sewage  Treatment Plant  has  already      been completed.  She further states that      the  advance   compensation  is   to  be      disbursed to  the land-owners.  Mr. Arun      Jaitley. Learned counsel states that the      DDA  shall  hand-over  the  compensation      amount  to   the  administration  within      three days  from today.  Learned counsel      further states that about 30 Hectares of      acquired    land     is    under     the

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    authorised/unauthorised  possession   of      various persons.  According to  her, the      remaining 76  Hectares of  land  can  be      handed  over  to  the  Undertaking  with      immediate   effect.   We   request   the      Committee consisting of Mr. PC Jain, Mr.      JK Mathur  and  Mr.  SP  Chakrabarti  to      visit  the  area  and  identify  the  76      Hectares   of    land   which   can   be      immediately    surrendered     to    the      Undertaking. This may be done within one      week. We  direct the  Secretary, Land  &      Building Department to send Department’s      representative/representatives with  the      team for  the purpose  of identification      of 76  Hectares of land (as at present).      Mr.   Suman   Swarup   shall   file   an      additional  affidavit   in  this   Court      within three weeks from today indicating      the progress made in this matter." Finally,  on   September  8,  1995  this  Court  issued  the following directions regarding the STP at Keshavpur:-      "So far  as the  requirement of land for      setting up STP in Keshopur is concerned,      this  Court  issued  directions  to  the      Delhi  Administration  on  December  14,      1994 to  initiate proceedings within two      weeks  thereafter   and  hand  over  the      possession to  the Undertaking  as early      as possible.  We are  constrained to say      that till  date the  possession  of  the      whole of the land (106 hectares) has not      been handed  over to the Undertaking. As      mentioned above, formal possession of 75      hectares has  been handed  over  to  the      Undertaking. Ms.  Suman  Swarup  is  the      Secretary  Incharge   of  the   Land   &      Building Department   and  also  of  the      Public Works  Department  of  the  Delhi      Administration.  We   direct  Ms.  Suman      Swarup to  have the  proceedings such as      the  assessment  of  the  value  of  the      structures on  the spot  etc. completely      within   four   weeds   from   September      11,1995. Thereafter,  she would  made  a      formal request  to the  DDA to  demolish      the  structures   and  hand   over   the      possession so that the DDA gets the land      from the Delhi Administration on payment      and thereafter hand over the same to the      Undertaking. Ms. Suman Swarup shall file      an affidavit  indicating the  compliance      of our order before October 16, 1995." Various orders and directions issued by this Court from time to time  in Mehta’s  case clearly  show  that  the  land  in dispute -  for Keshavpur  STP -  is being acquired under the directions of  this Court.  Even the  impugned notifications under Section  4 read  with 17 and Section 6 of the Act have been issued  under the  directions of this Court. This Court repeatedly indicated in the orders-directions that there was urgency in  taking over  the possession  of the  land, under acquisition, for  the construction  of STP  at Keshopur. The authorities were  directed to  take  up  the  work  of  land acquisition  and   construction  of  STP’s  on  war-footing. "Likely" in  the background  of this  Court’s orders  passed

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from time  to time for a time bound programme for setting up the STPs  means, for  purposes of this case, "certainly" and "urgently".      Delhi - the capital of India - one of the world’s great and historic  cities has  come to  be listed as third/fourth most polluted  and grubbiest  city in  the world. Apart from air-pollution,  the   waters  of  river  Yamuna  are  wholly contaminated. It  is a  paradox that the Delhi tes - despite river Yamuna  being the primary source of water supply - are discharging almost  totality of  untreated sewage  into  the river. There  are eighteen  drains including Najafgarh drain which carry  industrial and  domestic waste including sewage to river  Yamuna. Thirty  eight  smaller  drains  fall  into Najafgarh drain.  The Najafgarh  drain basin  is the biggest polluter to  river Yamuna.  Eight of  the  drains  including Najafgarh  drain  are  untrapped,  four  fully  trapped  and remaining six  are partially  trapped.  All  these  eighteen drains,  by   and  large,  carry  untreated  industrial  and domestic wastes and fall into river Yamuna. The river Yamuna enters Delhi  at Wazirabad  in the North and leaves at South after travelling a distance of about twenty five kilometers. The water  of river  Yamuna till  it enters Najafgarh is fit for  drinking   after  treatment,   but  the  confluence  of Najafgarh drain  and seventeen  other drains  make the water heavily polluted.  The water  quality of  Yamuna,  in  Delhi stretch, is  neither fit  for drinking  nor for bathing. The Biochemical Oxygen  Demand (BOD) level in the river has gone so high  that no flora or fauna can survive. It is of utmost importance and  urgency to  complete the construction of the STP’s in  the city  of Delhi. The project is of Great public importance. It  is indeed  of national  importance. We  take judicial notice of the fact that there was utmost urgency to acquire the  land in  dispute  and  as  such  the  emergency provisions of  the Act  were rightly  invoked. We reject the first contention raised by the learned counsel.      So far as the second contention raised by Mr. Vashisht, the same is mentioned to be rejected.      Whatever may  be the  user of the land under the Mastor Plan and  the Zonal  Development Plan  the State  can always acquire the  same for  public purpose in accordance with the law of  the land.  In any  case the  object and  purpose  of constructing  the  STP’s  is  to  protect  the  environment, control pollution  and in  the process  maintain and develop the agricultural green.      We see no force in any of the contentions raised by Mr. Vashisht. We,  therefore, dismiss  the Transfer  cases (writ petitions) with  costs. We quantify the costs as Rs.10,000/- to be paid by each of the petitioners in these cases.