TAMIL NADU HOUSING BOARD, CHENNAIversusM. MEIYAPPAN AND ORS.

                       [2010] 12 S.C.R. 1184


A          TAMIL NADU HOUSING BOARD, CHENNAI
                                  V.
                    M. MEIYAPPAN AND ORS.
                  (Civil Appeal No. 1757 of 2002)

                        OCTOBER 29, 2010
B
               [D.K. JAIN AND T.S. THAKUR, JJ.]

        Constitution of India, 1950.

c      Articles 32 and 226 - Writ petition challenging acquisition
  of land - Filed after 16 years of the award of compensation -
  HELD: The Courts are expected to be very cautious and
  circumspect about exercising their discretionary jurisdiction
  under Article 226 or Article 32 of the Constitution if there has
0 been inordina te and unexplained delay in questioning the
  validity of acquisition of land - In the mslant case, the writ
  petitioners did not furnish any explanation, and they had
  participated in the proceedings before Land Acquisition
  Collector - High Court should have dismissed the writ petition
E pt the threshold for delay and /aches - Land Acquisition -
  Delay/Laches.

       Pursuant to the Notification under Section 4(1) of the
  Land Acquisition Act, 1894, published in the Gazette
  dated 7.3.1979, certain lands were acquired for providing
F housing facilities to .people of low income group. The
  award of compensation was made on 28.4.1982. The land
  owners-respondents nos. 1 to 17 filed a writ petition in
  December, 1997 challenging the acquisition of their land.
  The appellant Housing Board, contested the writ petition,
G inter alia, on the ground of !aches stating that possession
  of the land had been taken over and handed to it on
  4.12.1979 and the writ petition was filed after a lapse of
  15 years. However, the High Court allowed the writ
  petition observing that the case was covered by the
H                             1184
    TAMIL NADU HOUSING BOARD, CHENNAI v M.             1185
              MEIYAPPAN AND ORS.

judgment in W. P. No. 2244 of 1991. Aggrieved, the              A
Housing Board filed the appeal.

     Allowing the appeal, the Court

     HELD: 1.1. It is trite law that delay and laches is one
of the important factors which the High Court must bear         8
in mind while exercising discretionary power under
Article 226 of the Constitution. If there is such negligence
or omission on the part of the petitioner to assert his right
which, taken in conjunction with the lapse of time and
other circumstances, causes prejudice to the opposite           C
party, the High Court must refuse to invoke its extra-
ordinary jurisdiction. Moreover, in relation to the land
acquisition proceedings, courts should be loathe to
encourage stale litigation, as the same might hinder
projects of public importance. The Courts are expected          D
to be very cautious and circumspect about exercising
their discretionary jurisdiction under Article 226 or Article
32 of the Constitution if there has been inordinate
unexplained delay in questioning the validity of
acquisition of land.[para 14 and 19] [1191-C-E; 1194-A-B]       E

     Rabindranath Bose & Ors. Vs. The Union of India & Ors.
1970 (2) SCR 697 = (1970) 1 SCC 84 Ourga Prashad Vs.
Chief Controller of Imports and Exports 1969 (2) SCR 596 =
(1969) 1 SCC 185 Tridip Kumar Oingal & Ors. Vs. State of        F
West Bengal & Ors. Tridip Kumar Dingal & Ors. Vs. State of
West Bengal & Ors. 2008 (15) SCR 194 = (2009) 1 SCC 768;
Yunus (Baboobhai) A. Hamid Padvekar Vs. State of
Maharashtra through its Secretary & Ors. 2009 (1) SCR 689
= (2009) 3 SCC 281; P. Chinnanna & Ors. Vs. State of A.P.
& Ors 1994 (2) Suppl. SCR 426 = (1994) 5 SCC 486; and           G
Printers (Mysore) Ltd. Vs. M.A. Rasheed & Ors. 2004 (3)
SCR 799 = (2004) 4 sec 460, relied on.

   Dayal Singh & Ors. Vs. Union of India & Ors, 2003 (1)
SCR 714 = (2003) 2 SCC 593, disapproved.                        H
    1186   SUPREME COURT REPORTS               [2010] 12 S.C.R.


A        Mis Trilok Singh Mohan Singh Vs. State of Haryana &
    Ors. (1994-2) 107 P.L.R. 144 and Mohinder Singh Sharma
    & Ors. Vs. State of Haryana & Ors. 1988 PLJ 525, cited.

       1.2. In the instant case, the respondents did not
8 furnish any explanation as to why it took them 16 years
  to challenge the acquisition of their lands when,
  admittedly, they were aware of it and had, in fact,
  participated in the proceedings before the Land
  Acquisition Collector. The High Court ought not to have
C entertained the writ petition after 16 years of the passing
  of the award, and should have dismissed it at the
  threshold on the ground of delay and laches on the part
  of respondent Nos.1 to 17, notwithstanding its earlier
  decision in W.P. No.2244 of 1991, which decision,
  according to the appellant, was otherwise
D distinguishable. The judgment of the High Court is set
  aside and the writ petition of respondents 1 to 17 stands
  dismissed. [para 22 and 24] [1195-D-F; 1196-A]

                       Case Law Reference:
E
       2009 (1) SCR 689           relied on           para 12
       (1994-2) 107 P.L.R. 144    cited               para 13
       1988 PLJ 525               cited               para 13
F      1969 (2) SCR 596           relied on           para 15
       1970 (2) SCR 697           relied on           para 16
       2008 (15) SCR 194          relied on           para 18
       1994 (2) Suppl. SCR 426    relied on           para 19
G
       2003 (1) SCR 714           disapproved         para 20
       2004 (3) SCR 799            relied on          para 20


H
   TAMIL NADU HOUSING BOARD, CHENNAI v. M.                   1187
             MEIYAPPAN AND ORS.

    CIVIL APPELLATE JURISDICTION : Civil Appeal No.                   A
1757 of 2002.

    From the Judgment & Order dated 18.4.2001 of the High
Court of Madras in Writ Appeal No. 679 of 1999.

    T. Harish Kumar, P. Prasanth, V. Vasudevan for theJ~ B
Appellant.

    M.L. Verma, C. Paramasivam, Satya Mitra, P. Ramesh,
R. Aneesh, Rakesh K. Sharma for the Respondents.
     The Judgment of the Court was delivered by
                                                                      c
     D.K. JAIN, J. 1. This appeal arises out of the judgment
and order dated 18th April 2001, delivered by a Division Bench
of the High Court of Judicature at Madras, affirming the
judgment of a Single Judge of the High Court in W.P. No. 108          D
of 1998, setting aside Notification G.O.M. No.311 Housing and
Urban Development Department dated 17th February 1979,
published in the Tamil Nadu Gazette dated 7th March 1979,
being a notification under Section 4( 1) of the La rid Acquisition
Act, 1894 (for short "the Act) relating to lands of the respondents   E
comprised in Survey No. 12/2 and 12/3 in Ponmeni village,
Madurai.

    2. Respondent Nos.1 to 17 are contesting land owners,
and are represented by respondent No.17 whereas respondent            F
Nos.18 and 19 are the proforma respondents, viz. the State of
Tamil of Nadu and the Special Tehsildar, Ellis Nagar
Development Scheme.

    3. The material facts, giving rise to the present appeal,
may be stated thus:                                                   G

    The Government of Tamil Nadu, vide G.O.M. No.1358
Housing and Urban Development Department dated 20th
September 1978, approved several schemes for providing
housing facilities to people of low income group for which
                                                                      H
    1188     SUPREME COURT REPORTS                 [2010] 12 S.C.R.


A   purpose acquisition of lands was necessary. One of such
    schemes was the Ellis Nagar Development Scheme, Madurai,
    for which about 220 acres of lands in West Madurai, Ponmein,
    and Madakulam villages was proposed to be acquired.

B        4. On 17th February 1979, the Government in their G.O.M.
    No. 311 Housing and Urban Development Department
    approved the notification under Section 4(1) of the Act. As
    stated above, the said notification was published in the official
    gazette on 7th March 1979.

C        5. After the publication of the afore-mentioned notification,
    enquiry under Section 5A of the Act was conducted, and
    thereafter, a declaration in terms of Section 6 of the Act was
    made and requisite direction under Section 7 of the Act was
    issued by the Government as per G.O.M. No.735 Housing and
D   Urban Development Department dated 2nd June 1980.

         6. On 15th March 1982, notices under Section 9(1) and
    10 of the Act were issued? Notices under Section 9(3) and 10
    of the Act were served on the owners of the lands and the
E   interested persons. Enquiry, as envisaged under Section 11 of
    the Act, was conducted on 16th April 1982, 20th April 1982,
    21st April 1982 and 22nd April 1982. Land owners of the land,
    subject matter in this appeal, were represented by their
    authorised agent, one Mr. A. R. Rathinam Chettiar.

F      7. The Award in relation to the said lands was made on
  28th April 1982, and the compensation was awarded to
  O.M.SP.L.M. Meyyappa Chettiar, Subramanian Chettiar,
  Arunachalam Chettiar, Alagappa Chettiar and Lakshmanan
  Chettiar. According to the appellant, after taking possession of
G the lands in question, on 4th December 1982, these were
  handed over to the Tamil Nadu Housing Board, which fact is
  now disputed by the contesting respondents. The matter rested
  there.

         8. However, in December 1997, respondents Nos.1 - 17
H
  TAMIL NADU HOUSING BOARD, CHENNAI v. M.                     1189
      MEIYAPPAN AND ORS. [D.K. JAIN, J.]

herein preferred a writ petition being W.P. No. 108 of 1998            A
before the High Court of Madras, challenging the acquisition
of their lands, which was contested by the appellant. One of the
objections in the counter affidavit filed on behalf of the appellant
in this appeal was as follows:
                                                                       B
     "It is submitted that the possession of the lands in action
     has been taken over and handed over to Tamil Nadu
     Housing Board on 4.12.82 among other lands acquired for
     using them to scheme purpose. After a lapse of 15 years
     the writ petition has been filed against the acquisition and      C
     the same is bad on the ground of "Laches" (sic). The Land
     is in possession and enjoyment of the Tamil Nadu Housing
     Board since the date of handing over on 4.12.82. Taking
     undue advantage of the interim injunction, the writ
     petitioners (sic) are trying to convert the lands into the
     house sites flats by planting stones and forming mud roads        D
     illegally (sic)."

     9. Ignoring the said objection to the maintainability of the
writ petition, vide order dated 21st April 1998, the learned
Single Judge allowed the writ petition of the respondents by a         E
short order, which reads as under:

     "It is not in dispute that facts of this case is covered by the
     judgment in W.P. No.2244 of 1991 (sic.) dated 21.4.97.
     Hence the writ petition is allowed as prayed for
     appreciating the said judgment. Consequently, the                 F
     connected W.M.Ps. are closed. No costs."

     10. Aggrieved by the said order, the appellant herein,
preferred intra-court appeal before the Division Bench of the
High Court. It appears from the record that along with the             G
appeal, an application seeking stay of the operation of the
judgment delivered by the learned Single Judge, was also filed.
wherein it was stated that upon delivery of the said judgment.
the land owners were taking hectic steps to enter into
possession of the subject lands. The Division Bench again              H
     1190      SUPREME COURT REPORTS                 [2010] 12 S.C.R.


A   without examining the question of delay and !aches, by the
    impugned judgment, dismissed the appeal of the appellant
    observing that:

          'The learned single judge, taking into consideration, all the
          materials available on record, found that the case in hand
B
          is fully covered by the order of this Court in W.P.No. 2244
          of 1991 as above. We do not find any good ground to take
          a different view to that of the order of the learned single
          Judge. That apart, we find no error or illegality in the order
          of the learned Single judge warranting our interference."
c
          11. Hence, the present civil appeal.

          12. Mr. T. Harish Kumar, learned counsel appearing for the
    appellant, while assailing the impugned judgment, strenuously
0   urged that in light of the decision of this Court in Yunus
    (Baboobhai) A. Hamid Padvekar Vs. State of Maharashtra
    through its Secretary & Ors., 1 the High Court committed a
    serious illegality in entertaining a writ petition which badly
    suffered from delay and !aches, having been filed after a lapse
E   of 16 years of the date of Award, without any explanation for
    the delay. Learned counsel argued that the High Court also
    failed to examine the stand of the appellant herein that the
    earlier decision of the High Court in W.P. No. 2244 of 1991,
    was clearly distinguishable on facts and thus, its ratio was not
F   applicable to the facts at hand

        13. Per contra, Mr. M.L. Varma, learned senior counsel
  appearing for the respondents contended that the judgment in
  W.P. No. 2244of1991 was based on the decision in W.P. No.
  1326 of 1982, and the latter judgment operated in rem and not
G in personam, and therefore, each land owner was not required
  to challenge the notification under Section 4(1) of the Act
  individually. Commending us to the decisions of the Punjab and
  Haryana High Court in M/s. Trilok Singh Mohan Singh Vs.

H   1.   (2009) 3 sec 2s1.
     TAMIL NADU HOUSING BOARD, CHENNAI v. M.                      1191
         MEIYAPPAN AND ORS. [D.K. JAIN, J.]

State of Haryana & Ors. 2 and Mohinder Singh Sharma & Ors.               A
Vs. State of Haryana & Ors., 3 learned counsel contended that
in cases when the compensation is not granted or the
possession is not taken over for a long period, the acquisition
becomes bad and since in the instant case, possession has
not been taken over by the Government so far, the acquisition            B
must be declared null and void and appeal should be
dismissed.

      14. At the outset, we must state that on the facts of this
case, the High Court was not justified in entertaining the writ
petition. In our opinion, the writ petition must fail on the short       C
ground that the writ petition had been filed 16 years after the
award was announced by the Collector. It is trite law that delay
and !aches is one of the important factors which the High Court
must bear in mind while exercising discretionary power under
Article 226 of the Constitution. If there is such negligence or          D
omission on the part of the petitioner to assert his right which,
taken in conjunction with the lapse of time and other
circumstances, causes prejudice to the opposite party, the High
Court must refuse to invoke its extra-ordinary jurisdiction and
grant relief to the writ petitioner.                                     E

      15. In Durga Prashad Vs. Chief Controller of Imports and
Exports, 4 this Court had held that it is well-settled that the relief
under Article 226 is discretionary, and one ground for refusing
relief under Article 226 is that the petitioner has filed the            F
petition after delay for which there is no satisfactory explanation.
It was noted that:

      "4. Gajendragadkar,' C.J., speaking for the Constitution
      Bench, in Smt Narayani Devi Khaitan v. The State of
      Bihar6 observed:                                                   G
2.   (1994-2) 107 P.L.R. 144
3.   1988 PL] 525.
4.   (1969) 1 sec 185.
5.   C.A. No. 140 of 1964, judgment dated 22nd Sepetember 1964.          H
     1192    SUPREME COURT REPORTS                   [2010] 12 S.C.R.


A         "It is well-settled that under Article 226, the power of the
          High Court to issue an appropriate writ is discretionary.
          There can be no doubt that if a citizen moves the High
          Court under Article 226 and contends that his fundamental
          rights have been contravened by any executive action, the
B         High Court would naturally like to give relief to him; but even
          in such a case, if the petitioner has been guilty of !aches,
         and there are other relevant circumstances which indicate
         that it would be inappropriate for the High Court to exercise
         its high prerogative jurisdiction in favour of the petitioner,
c        ends of justice may require that the High Court should
         refuse to issue a writ There can be little doubt that if it is
         shown that a party moving the High Court under Article 226
         for a writ is, in substance, claiming a relief which under the
         law of limitation was barred at the time when the writ
         petition was filed, the High Court would refuse to grant any
D
         relief in its writ jurisdiction. No hard and fast rule can be
         laid down as to when the High Court should refuse to
        exercise its jurisdiction in favour of a party who moves it
        after considerable delay and is otherwise guilty of !aches.
        That is a matter which must be left to the discretion of the
E       High Court and like all matters left to the discretion of the
        Court, in this matter too discretion must be exercised
        judiciously and reasonably."

        16. In Rabindranath Bose & Ors. Vs. The Union of India
F   & Ors., 6 a Constitution Bench of this Court, dealing with the
    same issue in relation to Article 32 of the Constitution, had
    observed that:-

        "We are of the view that no relief should be given to
        petitioners who, without any reasonable explanation,
G
        approach this Court under Article 32 of the Constitution
        after inordinate delay. The highest Court in this land has
        been given original jurisdiction to entertain petitions under
        Article 32 of the Constitution. It could not have been the

H s.   (1970) 1 sec 84.
     TAMIL NADU HOUSING BOARD, CHENNAI v. M.                  1193
         MEIYAPPAN AND ORS. [D.K. JAIN, J.]

      intention that this Court would go into stale demands after      A
      a lapse of years. It is said that Article 32 is itself a
      guaranteed right. So it is, but it does not follow from this
      that it was the intention of the Constitution-makers that this
      Court should discard all principles and grant relief in
      petitions filed after inordinate delay."                         B

    17. Though the afore"extracted observations in
Rabindranath Bose (supra) relate to Article 32 of the
Constitution, a fortiori, they would apply to writ petitions filed
under Article 226 of the Constitution as well. (See: Yunus
(Baboobhai) A. Hamid Padvekar (supra)).                                C

    · 18. Similarly, in Tridip Kumar Dinga/ & Ors. Vs. State of
West Bengal & Ors., 7 (to which one of us (D.K. Jain, J.) was a
party), this Court had observed as under:
                                                                       D
      "56. We are unable to uphold the contention. It is no doubt
      true that there can be no waiver of fundamental right. But
      while exercising discretionary jurisdiction under Articles 32,
      226, 227 or 136 of the Constitution, this Court takes into
      account certain factors and one of such considerations is
      delay and !aches on the part of the applicant in approaching     E
      a writ court. It is well settled that power to issue a writ is
      discretionary. One of the grounds for refusing reliefs under
      Article 32 or 226 of the Constitution is that the petitioner
      is guilty of delay and laches.
                                                                       F
      57. If the petitioner wants to invoke jurisdiction of a writ
      court, he should come to the Court at the earliest
      reasonably possible opportunity. Inordinate delay in
      making the motion for a writ will indeed be a good ground
      for refusing to·exercise such discretionary jurisdiction. The G
      underlying object of this principle is not to encourage
      agitation of stale claims and exhume matters which have
      already been disposed of or settled or where the rights of

1.   (2009) 1 sec 768.                                                 H
    1194      SUPREME COURT REPORTS                 [201 OJ 12 S.C.R.


A         third parties have accrued in the meantime" (See also: P. S.
          Sadasivaswamy Vs. State of Tamil Nadu 8 .)

          19. Moreover, in relation to the land acquisition
    proceedings, the Court should be loathe to encourage stale
    litigation as the same might hinder projects of public
8
    importance. The Courts are expected to be very cautious and
    circumspect about exercising their discretionary jurisdiction
    under Article 226 or Article 32 of the Constitution if there has
    been inordinate unexplained delay in questioning the validity of
    acquisition of land. In this regard, it will be useful to advert to
C   the observations made in P. Chinnanna & Ors. Vs. State of
    A.P. & Ors., 9 wherein this Court had observed thus:-

          "In fact, in relation to acquisition proceeding involving
          acquisition of land for public purposes, the court concerned
o         must be averse to entertain writ petitions involving the
          challenge to such acquisition where there is avoidable
          delay or laches since such acquisition, if set aside, would
          not only involve enormous loss of public money but also
          cause undue delay in carrying out projects meant for
E         general public good." (See also: Hari Singh & Ors. Vs.
          State of UP. & Orsrn.)

         20. We may, however, note that in Daya/Singh & Ors. Vs.
    Union of India & Ors11 , a three Judge bench of this Court, while
    dealing with a case of land acquisition, had observed that:
F
         "Primarily a question of delay and laches is a matter which
         is required to be considered by the writ court. Once the
         writ court has exercised its jurisdiction despite delay and
         laches on the part of the respondents, it is not for us at this
G        stage to set aside the order of the High Court on that
         ground alone particularly when we find that the impugned

    8.   (1975) 1 sec 152.
    9.   (1994) 5 sec 486.
H   10. (1984) 2 sec 624.
    TAMIL NADU HOUSING BOARD, CHENNAI v. M.                  1195
        MEIYAPPAN AND ORS. [D.K. JAIN, J.]

      judgment is legally sustainable."                                   A
                                                                •,'   .
     21. We feel that the view echoed in Dayal Singh (supra)
   is not in consonance with the decision of the Constitution Bench
. in Rabindranath Bose (supra), which was not noticed in the
 · said judgment. It is also pertinent to note that subsequently in       B
   Printers (My99re). Ltd. Vs. M.A. Rasheed & Ors:, another three,
   Judge Bench of this Court, had observed as follows:-

      " Furthermore, the writ petition should not have been
      entertained keeping in view the fact that it was filed about
      three years after making of the allotment and execution of          C
      the deed of sale. The High Court should have dismissed
      the writ petition on the ground of delay and laches on the
      part of the first respondent. The Division Bench of the High
      Court also does not appear to have considered the plea
      taken by the appellant herein to the effect that the first          D
      respondent had been set up by certain interested persons."

      22. In the present case, as already stated, the respondents
 did not furnish any explanation as to why it took them 16 years
 to challenge the acquisition of their lands, when admittedly they        E
 were aware of the acquisition of their lands and had in fact
 participated in these proceedings before the Land Acquisition
 Collector. We have no hesitation·,, holding that the High Court
 ought not to have entertained the writ petition of the
 respqndents after 16 years of the passing of the award. The
 High/ Court sh9uld have dismissed the writ petition at the               F
 threshold on the ground of delay and laches on the part of
 respondent Nos.1 to 17, notwithstanding its earlier decision in
 W.P. No.2244 of 1991, which decision, according to the
 appellant, was otherwise distinguishable.
                                                                          G
     23. In light of the view we have expressed, we deem it
 unnecessary to evaluate the merits of other submissions
 canvassed by learned counsel for both the parties.
 11. (2003) 2 sec 593.
 12. (2004) 4 sec 460.                                                    H
    1196       SUPREME COURT REPORTS              (2010] 12 S.C.R.


A       24. For the reasons aforesaid, the impugned judgment
    cannot be sustained. Accordingly, the appeal is allowed; the
    impugned judgment is set aside and the writ petition, filed by
    respondent Nos. 1 to 17 in this appeal, stands dismissed.

           25. Parties to bear their own costs.
B
    R.P.                                           Appeal allowed.