Holding

NIMS illegally encroached on Khasra No. 526 without any lawful authority and its constructions must be demolished; the lower courts' orders were not perverse.

Summary

The National Institute of Medical Sciences University (NIMS) claimed that the State of Rajasthan had failed to respond to its repeated representations for the allotment of Khasra No. 526 and, relying on this silence, constructed extensive buildings on the land. The State, invoking the Jaipur Development Authority Act, 1982 and other land laws, issued a notice of encroachment and the matter proceeded through an appellate tribunal, a single judge and a division bench of the Rajasthan High Court, all of which dismissed NIMS's petitions and ordered demolition of the illegal structures. NIMS appealed to the Supreme Court, arguing that the lower courts' orders were perverse and that the land, being pasture, could not be allotted to it. The Court held that NIMS had no legal right to assume allotment, had illegally encroached on 8,125 sq. metres of government land, and that the lower courts' findings were not perverse. Consequently, the Supreme Court dismissed the petitions, imposed costs on NIMS and directed the demolition of the unauthorized construction by the Jaipur Development Authority, emphasizing the need to protect the catch‑area of Ramgarh Dam and the public’s right to water.

Issues considered

Whether NIMS could lawfully assume that its request for allotment of Khasra No. 526 was approved in the absence of any express order.
Whether the construction undertaken by NIMS on Khasra No. 526 amounted to illegal encroachment under the Jaipur Development Authority Act, 1982 and related statutes.
Whether the orders of the Appellate Tribunal, the Single Judge and the Division Bench of the Rajasthan High Court were perverse or otherwise erroneous.
Whether demolition of the unauthorized structures is the appropriate remedy under the law.
Whether the land in question is pasture land, thereby precluding the accrual of Khatedari rights under Section 16 of the Rajasthan Tenancy Act, 1955.

Legislation cited

Subjects

illegal encroachmentland allotmentcatchment area protectionenvironmental lawpublic trust doctrinedemolition of unauthorized constructionRajasthan land lawright to water

Judgment

[2017] 13S.C.R.141

NATIONAL INSTITUTE OF MEDICAL SCIENCE A
UNIVERSITY RAJASTHAN & ANR.
v.
STATE OF RAJASTHAN & ORS.
(Special Leave to Appeal (Civil) Nos. 38040-38041 of2012)
B
NOVEMBER 09,2017
[MADAN 8. LOKUR AND DEEPAK GUPTA, JJ.]
Environment - Catchment areas of Dam - Protection and
preservation of - Ramgarh Dam (near Jaipur) in the State of
Rajasthan - Illegal encroachment in the catchment areas of the C
Dam by appellant-University resulting in drying up of the Dam and
consequent problem of scarcity of water in respondent-State -
Several representations made by appellant for allotment of the land
"in question, Khasra No.526 (in Jaipur District) in its favour. not
replied to by any of the authorities - Appellant made massive D
construction on Khasra No.526 - Eventually, writ petition filed by
appellant in High Court for directions to be issued for allotment of
Khasra No.526 for its University - Appellant was also issued notice
u/s.72 of the 1982 Act w.r.t. encroachments on Khasra No.526 -
Appeal there against by appellant before Appellate Tribunal, Jaipur
Development Authority, dismissed- Writ petition by appellant against E
this order as well - Both writ petitions dismissed by Single Judge of
High Court - Order upheld by Division Bench of High Court - On
appeal, held: Appellant has not been able to show any perversity in
the orders passed either by Appellate Tribunal or by Single Judge
or by Division Bench - Even if there was no response to the F
representations made by appellant from any of the authority. it had
no right to assume that its request for allotment had been accepted
(or not rejected) and on that assumption make constructions on the
land in question without any permission or sanction - Due to the
illegal and unlawful construction made in the area by several parties
including appellant, Ramgarh Lake is absolutely dry and the G
residents of Jaipur city are suffering from water shortage as water
from this region was being supplied to Jaipur city before the area
dried up - Costs of Rs. l 0 lakhs per petition imposed for the brazen
encroachment - Merely dismissing the petitions would serve no
useful purpose, hence, demolition of the unauthorized construction H
141
142 SUPREME COURT REPORTS [2017] 13 S.C.R.

A by or on behalf of appellant on Khasra No. 526 also directed. at
the expense of appellant - Jaipur Development Authority Act. 1982
- s.54 - Rajasthan Tenancy Act, 1955 - s.16 - Rajasthan Land
Revenue (Allotment of Unoccupied Government Agricultural Land~
for the Construction of Schools, Colleges, Dispensaries,
B Dharamshalas and Other Buildings of Public Utility) Rules. 1963 -
Rqjasthan lmprol/ement Trust (Disposal of Urban Land) Rules. 1974
- Constitution o/ India - Art. 21.
Dismissing the Petitions, the Court
HELD: 1.1 Appellant-University, NIMS had not been able
c to show any perversity, on facts, in the orders passed by the
Appellate Tribunal or by the Single Judge or by the Division Bench
of the High Court. [Para 31] (151-F-G]
1.2 One of the factual conclusions arrived at by the High
Court is that NIMS had made a request for allotment of Khasra
0 No. 526 for the first time only on 28.. February 2005 and that too
before the Chief Minister who was not the competent authority
to make the allotment - the competent authority being the
Collector of Jaipur district. Assuming there was no response from
the Chief Minister to that or any other representation made by
NIMS to any authority Including the Jaipur Development
E Authority for allotment of Khasra No. 526, NIMS had no right to
assume that its request for allotment had been accepted (or not
rejected) by the Chief Minister or the Jaipur Development
Authority and on that assumption to make constructions on the
land without any permission or sanction. (Paras 32, 34]
F
[151-G, H; 152-8]
1.3 It has also come on record as a matter of fact that NIMS
had encroached upon 8125 sq. mtrs. in Khasra No. 526. It has
also come on record that in fact NIMS had not filed any objections
to the Report dated 11 '" September 2012 before the Appellate
G Tribunal. As a matter of fact due to the illegal and unlawful
construction having been made in the area by several parties
including NIMS, Ramgarh Lake is now absolutely dry and the
residents of Jaipur city are suffering from water shortage because
of this- since water from the region was being supplied to Jaipur
city before the area dried up. These undisputed facts are enough
H
NATIONAL INSTITUTE OF MEDICAL SCIENCE UNIVERSITY 143
RAJASTHAN v. STATE OF RAJASTHAN

to dismiss the petitions filed by NIMS. There is no law that A
supports the brazenness of NIMS in wantonly encroaching on
Khasra No. 526 and then making huge constructions thereon.
No law or decision was placed on behalf of NIMS to support the
encroachment done by it on Khasra No. 526. [Para 35] (152-C-E)

Abdul Rahman v. State of Rajasthan (Decision dated B
2•• August 2004 of Rajasthan High Court in DBCWP
No.1536 of 2003) ; Suo Motu v. State of Rajasthan
(Decision of Rajasthan High Court in SBCWP
No. 11153 of 20110 - approved.

Ml. Builders Pvt. Ltd. v. Radhey Shyam Sahu and Ors c
(1999) 6 SCC 464 : [1999] 3 SCR 1066 - relied on.

Jagpa/ Singh v. State of Pwijab (2011) 11 SCC 396 :
(2011) 2 SCR 250 - referred to.

Case Law Reference D
(2011) 2 SCR 250 referred to Para 27
(1999) 3 SCR 1066 relied on Para40
CNILAPPELLATE JURISDICTION : Special Leave to Appeal E
(Civil) Nos. 38040-38041 of2012.

From the Judgment and Orders dated 01.11.2012 and 26.11.2012
of the High Court of Judicature for Rajasthan, Jaipur Bench at Jaipur in
S. B. Civil Writ Petition No. 1814 of2012 and in D. B. Special Appeal
(Writ) No.1455 of2012 respectively
F
WITH

SLP (C) Nos. 38332-38333 of2012.

Pallav Shisodia, Sr. Adv., Prashant Kumar, Adv. for the Appellants.
G
S. S. Shamshery, AAG, Ms. Shobha B. Kranthi Kumar, Satyam
Jyoti Saikia, Ranbir Singh Yadav, Ms. Anzu K. Varkey, Puran Mal Saini,
Amit Sharma, Ankit Raj, Ms. Indira Bhaskar, Sandeep Singh, Ms. Ruchi
Kohli, Shiv Mangal Sharma, Saurabh Rajpal (for Ws. Aura & Co.),
Irshad Ahmad, Ajay Choudhary, Advs. for the Respondents.
H
144 SUPREME COURT REPORTS [2017] 13 S.C.R.

A The Judgment of the Court was delivered by
MADAN ij. LOKUR, .J. I. These petitions are illustrative of
how some interests can frustrate the rule oflaw and get away with it.
What the petitioners are responsible for, apparently along with several
others, is creating,a water shortage in Jaipur City and also ensuring that
B Ramgarh Lake which was made famous in the Asian Games held in
1982 is now completely dry and the catchment areas of Ramgarh Dam
are rendered c01;npletely useless. This is a tragedy of enormous
proportions and rather unfortunately neither the State ofRajasthan nor
the Jaipur DcvcloJllmcnt Authority has thought it fit to take stem remedial
action. They are thereby compounding the woes of the residents of the
c city of Jaipur. It is, often said that power comes with responsibility- and
so should it be with the State and the authorities and the petitioner,
particularly when it concerns the interests of the people.
2. The origin of these petitions can be traced back to the decision
of the Rajasthan High Court in Abdul Rahman v. State ofRajasthan.'
D In this decision, the High Court attempted, through a series of directions,
to ensure free flow of water in the catchment areas of Ramgarh Dam
(near Jaipur) and 1hrough Tata River and Banganga River. The directions
were the conclusion of a public interest litigation in which a public spirited
person approached the Rajasthan High Court and highlighted the
E necessity of protecting tanks and ponds in Rajasthan for a proper and
healthy environment to enable the people to enjoy quality life, the essence
of the right of a citizen guaranteed by Article 2 l of the Constitution.
3. What is the significance of Ramgarh Dam? The dam was
constructed in l 903 having a catchment area of about 769.20 sq. km.
F spread over four Tehsils, namely, Jamvaramgarh, Amer, Shahpura and
Viratnagar. The water harnessed by the dam was, till 1978, a source of
irrigation. Thereafter, it became a source of drinking water for Jaipur
City. During the Asian Games held in India in 1982 Ramgarh Lake was
one of the highlights of the Games and events relating to water sports
were held in the Lake. Unfortunately, today the Lake is dry and
G apparently heavily encroached upon due to the omissions and commissions
of various departments of the Government ofRajasthan. What is worse
is that with the Lake drying up and the catchment areas without any
water, Jaipur City is faced with a scarcity of water.
-------- - - - -
'DBCWP No.1536 of2003 decided on 2"' August 2004
H
NATIONAL INSTITUTE OF MEDICAL SCIENCE UNIVERSITY 145
RAJASTHAN v. STATE OF RAJAsTHAN (MADAN B. LOKUR, J.]

4. With these ground realities in mind and while entertaining the A
Public Interest Litigation (PIL) initiated by Abdul Rahman, the High
Court passed an order on J 81h July 2003 requiring the State Government
to undertake a general survey to identify the catchment areas ofRamgarh
Dam that were misused for construction and mining purposes. This was
in the context of what appeared to the High Court as indiscriminate B
mis-utilization of the catchment areas for construction and mining
purposes which prevented lakes, reservoirs, rivers, ponds, etc., from
receiving water even during the monsoon season. The survey was also
intended to study the effect of utilization of the catchment areas for
construction, mining and other purposes. The State Government was
also required to suggest measures for restoring the catchment areas to C
their original shape and use.
5. Pursuant to the directions given by the High Court on 18'" July
2003, the State Government constituted-an Expert Committee which
gave a report that makes for some very sad reading. However, the Expert
Committee also gave as many as 15 valuable suggestions for restoring D
the catchment areas to their original shape and use. These suggestions
were accepted by the High Court and directions issued to the State
Government to consider the recommendations of the Expert Committee
and chalk out a plan to take effective steps to restore the catchment
areas. Three months time was granted to the State Government to give
concrete and positive shape to the suggestions. E

6. Not surprisingly, no seriousness was attached to the decision
and directions of the High Court in Abdul Rahman and matters were
allowed to drift.
Suo motu proceedings F
7. Under these circumstances, due to the Jack of any positive and
visible action by the State Government in preserving and protecting the
catchment areas of Ramgarh Dam, a learned Single Judge of the
Rajasthan High Court was persuaded to initiate suo motu proceedings
titled as Suo Motu v. State o/Rajasthan (registered as SBCWP No.11153 G
of2011).
8. On 23"' August 2011 the learned Single Judge noted that the
catchment areas of Ramgarh Dam were not being given the deserved
importance due to a Jack of coordination between various departments
H
146 SUPREME COURT REPORTS (2017] 13 S.C.R.

A of the Government of Rajasthan. The learned judge also noted that no
effective steps had been taken for implementing the directions issued in
Abdul Rahma1' particularly with reference to Ramgarh Dam and that
there was a lacl{ of willingness on the part of the State Government to
take required measures. Accordingly, the learned judge felt that some
monitoring action was necessary for saving the water resources in
B
Rajasthan and initially with reference to Ramgarh Dam. In view of this,
the learned judge appointed a two member Monitoring Committee for
implementing the directions relating to Ramgarh Dam in terms of the
judgment in Abdul Rahma1'. The learned Single Judge also gave certain
directions on 23"' August 2011 some of which included the following:
c "(i) All the Departments involved in the present matter like
Revenue, Forest, Irrigation, PHED, Environment, Mining,
Panchayati Raj are directed to cooperate with each other to
stop encroachment and illegal construction in the drainages,
channels, nalas, river etc. in the four tehsils named above.
D (ii) State Government will ensure stoppage of encroachment
and construction in the catchment area of Ramgarh Dam.
(iii) xxx xxx xxx
(iv) State Government will come out with the plan for removal
E of encroachments so as to restore the position as was existing
on 15.08.1947.
xxx xxx xxx"
9. A perusal of the proceedings in the suo motu petition indicates
that the Monitoring Committee put in considerable efforts and gave
F valuable inputs through its reports. In its written submissions filed before
the learned Single Judge, it was noted that there is a problem of scarcity
of water and even Ramgarh Dam, which was considered the only
reservoir of water supply to Jaipur City had become dry due to
encroachments and obstructions. The darn was unable to get water due
G to land grabbers, property dealers, constructions and farm houses, club
houses, resorts, etc.
10. In its written submissions, the Monitoring Committee noted
that the petitioners before us had made massive encroachments in the
catchment areas of Ramgarh Dam. The learned Single Judge took note
of the reports and submissions of the Monitoring Committee and passed
H
NA:r!ONALINSTITUTE OF MEDICAL SCIENCE UNIVERSITY 147
RAJASTHAN v. STATE OF RAJASTHAN [MADAN B. LOKUR, J.]

a final order on 29,. May 2012 giving a series of directions with the A
expectation and hope that the directions would not remain only on paper
but would be implemented in reality.
Remedial steps
11. The sequence of events over the last 15 years indicates that
the effort made by the Division Bench of the High Court in Abdul B
Rahman as well as the effort made by the learned Single Judge in the
suo motu proceedings hardly yielded any positive results at least insofar
as they relate to the petitioner- the National Institute of Medical Sciences
University or NIMS.
12. However, before detailing the steps concerning NIMS, it must C
be stated that the Government of Rajas than prepared an Initial Action
Plan in July 2012 followed by a report prepared by a Technical
Committee on 9" January 2013 on Less/no inflow in Ramgarh Dam
(District Jaipur) Despite Average and Above Average Rainfall and
Remedial Measures to Restore Inflow. D
13. During the hearing of these petitions, we had enquired from
the learned counsel whether there is any water in Ramgarh Lake but
were told that it is still bone dry. It appears to us, therefore, that the
Initial Action Plan and the report of the Technical Committee as well as
expectations and hope of the learned Single Judge that the directions, E
plans of action and remedial measures would not remain only on paper
but would be implemented in reality have been completely belied. This is
a pity.
Facts relating to NIMS
14. The petitioner is a University and presumably it is a University F
of some repute and responsibility. It made an application for allotment of
land in village Jugalpur, Tehsil Amer in District Jaipur to the District
Collector of Jaipur on 1O" May 2002. However, the application for
allotment did not include Khasra No.526 with which we are concerned.
NIMS apparently did not receive any reply to the application.
G
15. For reasons that are not quite clear, NIMS sent a letter to the
Chief Minister of Rajasthan on 28,. February 2005 to the effect that it
had allegedly encroached upon Khasra No. 526. Having denied the
allegation, NIMS then sought allotment of that Khasra being No. 526
Rakba 14.44 hectare.
148 SUPREME COURT REPORTS [2017] 13 S.C.R.

A 16. According to NIMS, it made several subsequent representations
for allotment qfKhasra No. 526 but received no reply from any of the
authorities for as long as I 0 years. During this period, NIMS presumed
that the silence of the State Government meant that it had no objection
to the allotmen~. Accordingly, it claimed to have purchased several parcels
B ofland includihg Khasra No. 526 from various Khatedars and claimed
that demarcation of the land was also carried out by the Revenue
authorities. On the presumption that there was no objection to the
allotment of the land, NIMS made massive construction on Khasra No.
526.
I 7. Eventually and since no favourable action was taken on the
C representations made, NIMS filed S.B. Civil Writ Petition No. 1814 of
2012 in the High Court praying that directions may be issued in its favour
for allotment of land including Khasra No. 526 for its University. The
writ petition c11me to be dismissed by a learned Single Judge of the High
Court by a judgment and order dated !"November 2012.
D 18. Around that time, NIMS was issued a notice dated J3th
February 2012 under Section 72 of the Jaipur Development Authority
Act, I 982 in respect of the alleged encroachments on Khasra No. 526.
19. Feeling aggrieved by the notice, NIMS preferred Appeal No.
37 of2012 before the Appellate Tribunal, Jaipur Development Authority.
E After hearing NIMS, the Appellate Tribunal dismissed the appeal by its
judgment and order dated 12" October 2012. This Jed NIMS to prefer
S.B. Civil Writ Petition No.16836 of2012 in the High Court. This writ
petition was clubbed along with S.B. Civil Writ Petition No. 1814 of
2012 and both were dismissed by a learned Single Judge on !"November
F 2012.
20. Feeling aggrieved by the dismissal of both the writ petitions,
NIMS preferred special appeals before the Division Bench of the High
Court and these were registered as D.B. Civil Special Appeal (Writ)
Nos. 1455-1456 of20!2. Both the appeals were heard by the Division
G Bench and dismissed by the impugned judgment and order dated 26"
November 2012.
Decision of the learned Single Judge
21. A perusal of the judgment and order passed by the learned
Single Judge indicates that in fact the land in dispute namely Khasra No.
H 526 originally vested in the State Government. By a Notification issued
NATIONAL INSTITUTE OF MEDICAL SCIENCE UNIVERSITY 149
RAJASTHAN v. STATE OF RAJASTHAN [MADAN B. LOKUR, J.]

on I" October 2007 it then vested in the Jaipur Development Authority A
and was brought within the limit of the Jaipur Development Authority.
Therefore, from I" October 2007 only the Jaipur Development Authority
had jurisdiction over the land bearing Khasra No. 526.
22. The learned Single Judge also noted that the Appellate Tribunal
had required measurements to be carried out with reference to Khasra B
No.526 and on 11"' September 2012 it was found that NIMS had
encroached upon land measuring 8125 sq. mtrs. in Khasra No. 526 and
also in certain other areas. But as we have mentioned above we are
only concerned with Khasra No. 526. With regard to the inaction on the
representation made by NIMS for allotment ofland, the learned Single
Judge noted that merely because the concerned authorities had not taken C
any decision on the representation, NIMS was not entitled to presume
that there was no objection to its taking possession of the land and
constructing thereon. Accordingly, the learned Single Judge found no
error in the view taken by the Appellate Tribunal holding that NIMS had
encroached on 8125 sq mtrs. ofland in Khasra No. 526 and that NIMS D
was not entitled to make any construction thereon. While dismissing the
writ petitions by judgment and order dated I" November 2012 the learned
Single Judge directed the Jaipur Development Authority 10 demolish the
construction. However, it was further directed that demolition would not
take place till 7"' November 2012.
E
Decision of tlie Division Bench
23. NIMS appealed against the decision of the learned Single
Judge. While deciding the appeals, the Division Bench accepted the
view expressed by the learned Single Judge and dismissed the appeals.
24. Before the Division Bench, it was contended by NIMS that. F
the land in dispute was pasture land and that it could be allotted to NIMS
under the local laws including the Rajasthan Land Revenue (Allotment
of Unoccupied Government Agricultural Lands for the Construction of
Schools, Colleges, Dispensaries, Dharamshalas and Other Buildings of
Public Utility) Rules, 1963 as well as the Rajasthan Tenancy Act, 1956 G
and the Rules framed thereunder. Reference was also placed on the
Rajasthan Improvement Trust (Disposal of Urban Land) Rules, 1974.
The Division Bench took note of all these provisions and observed that
in its initial application dated JO<h May 2002 made to the Collector, no
request was made by NIMS for allotment of Khasra No. 526. For the
H
150 SUPREME COURT REPORTS (2017] 13 S.C.R.

A first time such a request was made by NIMS on 28'h February 2005 to
the Chief Minister ofRajasthan and not to the concerned Collector who
alone was competent to make the allotment. The Division Bench also
made a referen~e to Section 16 of the Rajasthan Tenancy Act, 1955 and
noted that Khatedari rights could not accrue in pasture land and therefore
it was not available for allotment.
B
25. The Division Bench held that even otherwise, after l" October
2007 Khasra No. 526 vested in the Jaipur Development Authority and
therefore the allotment could be made only by that Authority in terms of
Section 54 of the Jaipur Development Authority Act and not by the State
Government.' The High Court noted that no application was made by
c NIMS to the Jaipur Development Authority for allotment ofKhasra No.
526 or any other Khasra of village Jugalpura.

'54. Land to veslin the Authority and its disposal. - (1) Notwithstanding anything
contained in the Rajasthan Land Revenue Act. 1956 (Rajasthan Act No. 15 of 1956),
D the land as defined in section I 03 ofthat Act, excluding land referred to in sub-clause (ii)
of clause (a) of the said section and Nazul Land placed at the disposal of a local
authority under section 102-A of that Act in Jaipur Region shall, immediately after
establishment of the Authority under section 3 of this Act, be deemed to have been
placed at the disposal of and vested in the Authority which shall take oversuch land for
and on behalf of the State Government and may use the same for the purposes of this
Act and may dispose of the san1e by way of allotment, regularization or auction
E subject to such cQnditions and restrictions as the State Government may, from time to
time, lay down arid in such manner, as it may, from time to time, prescribe:
Provided that the Authority may dispose of any such land-
(a} withlOut undertaking or carrying out any development thereon; or
(b) after undertaking or carrying out such development as it thinks fit, to
such person, in such manner and subject to such covenants and conditions, as
it may consider expedient to intpose for securing development according to
F plan.
(2) No developn1ent of any land shall be undertaken or carried out except by or under
the control and supervision of the Authority.
(3) If any land v~sted in the Authority is required at any time by the Nagar Nigam,
Jaipur for carrying out its functions, or by the State Government for any other purpose,
the State Government may, by notification in the Official Gazette, place such land at
G the disposal of the Nagar Nigam, Jaipur or any Departn1ent of the State Government on
such terms and conditions, as may be deemed fit.
(4) All land acquired by the Authority, or by the State Government and transferred to
the Authority, shall be disposed of by the Authority in the same manner as may be
prescribed for land in sub-section (1).

H
NATIONAL INSTITUTE OF MEDICAL SCIENCE UNIVERSITY 151
RAJASTHAN v. STATEOFRAJASTHAN[MADANB. LOKUR,J.]

26. Under these circumstances, the Division Bench took the view A
that NIMS had encroached upon Khasra No. 526 and had raised
constructions thereon without any permission or sanction and that it was
not possible to ignore the illegalities committed by NIMS.
27. NIMS contended before the Division Bench that since massive
constructions had already been made, no useful purpose would be served B
by demolishing the construction. It was submitted that demolition would
not serve any public purpose. This submission was rejected by the Division
Bench by relying upon a decision of this Court in Jagpal Singh v. State
of Punjab' to the effect that if land is not available for allotment and
construction is made thereon, then that construction must be demolished.
c
28. The High Court also took the view that if appropriate steps
are not taken to remove the encroachment, it would encourage others to
encroach upon land and to seek regularization of any illegal construction
made thereon.
29. As far as the decision rendered by the Appellate Tribunal is D
concerned, the Division Bench noted that the report of 11" September
2012 was unimpeachable and there was no doubt that NIMS had
encroached on 8125 sq. mtrs. ofland in Khasra No. 526.
Proceeding in this Court
30. It was submitted by learned counsel for NIMS that no E
encroachment was made by NIMS and that in any event there were a
large number of encroachers in the catchment areas. According to
learned counsel there was no reason why only NIMS should be singled
out for adverse or punitive treatment. We are not at all impressed by the
submissions made by learned counsel. F
31. What is before us is really only a factual dispute. NIMS has
not been able to show any perversity, on facts, in the orders passed by
the Appellate Tribunal or by the learned Single Judge or by the Division
Bench.
32. One of the factual conclusions arrived at by the High Court is G
that NIMS had made a request for allotment ofKhasra No. 526 for the
first time only on 28" February 2005 and that too before the Chief Minister
who was not the competent authority to make the allotment - the
competent authority being the Collector of Jaipur district. Why NIMS

'(2011) 11sec396 H
152 SUPREME COURT REPORTS (2017] 13 S.C.R.

A chose to directly approach the Chief Minister is a mystery which can be
solved only by NIMS.
33. Post l" October 2007 there was no request made by NIMS to
the Jaipur Development Authority for the allotment ofKhasra No. 526.
34. Assuming there was no response from the Chief Minister to
B that or any other representation made by NIMS to any authority including
the Jaipur Development Authority for allotment ofKhasra No. 526, NIMS
had no right to assume that its request for allotment had been accepted
(or not rejectep) by the Chief Minister or the Jaipur Development
Authority and on that assumption to make constructions on the land
without any pennission or sanction.
c
35. It has also come on record as a matter of fact that NIMS had
encroached upon 8125 sq. mtrs. in Khasra No. 526. It has also come on
record that in fact NIMS had not filed any objections to the Report
dated 11"' September 2012 before the Appellate Tribunal. It has also
come on record that as a matter of fact due to the illegal and unlawful
D construction having been made in the area by several parties including
NIMS, Ramgarh Lake is now absolutely dry and the residents of Jaipur
city are suffering from water shortage because of this - since water
from the region was being supplied to Jaipur city before the area dried
up. These undisputed facts are enough to dismiss the petitions filed by
E NIMS. There is no law that supports the brazenness of NIMS in
wantonly encroaching on Khasra No. 526 and then making huge
constructions thereon.
36. Learned counsel for NIMS did not place before us any law
or decision to support the encroachment by NIMS on Khasra No. 526.
But, learned counsel for the Jaipur Development Authority as well as
learned counsel for Dinesh Kumar Saini a reporter of Current Jwala
(Respondent No. 2) drew our attention to Section 16 of the Rajasthan
Tenancy Act, 195 5 which prohibits accrual ofKhatedari rights in pasture
land. 4 It was submitted that in view of this provision, assuming the land
in Khasra No. 526 to be pasture land, NIMS could not have acquired
G Khatedari rights as claimed.
4 1.6. Lands in which Khatedari rights shall not accrue - Notwithstanding anything
in this Act or in any other laworenactinent for the time being in force in any part of the
State Khatedari rights shall not accrue in -
(i) pasture land;
(ii) to (xiv) xxxx
H Provided that .....
NATIONAL INSTITUTE OF MEDICAL SCIENCE UNIVERSITY 153
RAJASTHAN v. STATEOFRAJASTHAN[MADAN B.LOKUR,J.]

Conclusion A
37: It is most unfortunate that despite orders passed by the
Rajasthan High Court in Abdul Rahman and in the suo motu petition
and views expressed by the Monitoring Committee appointed by the
High Court as well as the Expert Committee set up by the State
Government and plan of action having been prepared by the State B
Government, nothing substantive appears to have been achieved on the
ground over the years.
38. Under the circumstances, we have no option but to dismiss
the petitions but with costs of Rs.JO lakhs per petition for the brazen
encroachment. The amount should be deposited by NIMS in the Registry c
of this Court within six weeks.
39. In our opinion, merely dismissing the petitions would serve no
useful purpose since it appears to us that NIMS is a rather powerful and
influential entity. We say this because it has been able to successfully
frustrate its eviction and demolition of the construction for at least one D
decade. Even before us an attempt was made to take an adjournment so
that it could possibly use its influence over whoever it may be to get
some favourable executive orders.
40. In M.I. Builders Pvt. Ltd. v. Radhey Shyam Sahu and
Ors' this Court directed enforcement of the rule oflaw by demolition of E
unauthorized constructions. It was held as follows:
"The High Court has directed dismantling of the whole project
and for restoration of the park to its original condition. This Court
in numerous decisions has held that no consideration should be
shown to the builder or any other person where construction is
F
unauthorised. This dicta is now ;ilmost bordering the rule of law.
Stress was laid by the appellant and the prospective allottees of
the shops to exercise judicial discretion in moulding the relief.
Such discretion cannot be exercised which encourages illegality
or perpetuates an illegality. Unauthorised construction, if it is illegal
and cannot be compounded, has to be demolished. There is no .· G
way out. Judicial discretion cannot be guided by expediency. Courts
are not free from statutory fetters. Justice is to be rendered in
accordance with law. Judges are not entitled to exercise discretion
wearing the robes of judicial discretion and pass orders based
'(I 999) 6 sec 464 H
154 SUPREME COURT REPORTS [2017] 13 S.C.R.

A solely on their personal predilections and peculiar dispositions.
Judicial discretion the wherever it is required to be exercised has
to be in accordance with law and set legal principles. As will be
seen in moiilding the relief in the present case and allowing one of
the blocks meant for parking to stand we have been guided by the
obligatory duties of the Mahapalika to construct and maintain
B
parking lots."
41. This view was followed and endorsed in Jagpal Singh in the
following words:
"In Ml. Ruilders (P) Ltd. v. Radhey Shyam Sahu the Supreme
c Court ordered restoration of a park after demolition of a shopping
complex constructed at the cost of over Rs. 100 crores.
In Friends Colony Development Committee v. State of Orissa6
this Court held that even where the law permits compounding of
unsanctioned constructions, such compounding should only be
D by wcy of an exception. In our opinion this decision will apply
with even greater force in cases of encroachment of village
common land. Ordinarily, compounding in such cases should only
be allowed where the land has been leased tu landless labourers
or members of Scheduled Castes/Scheduled Tribes, or the land is
actually being used for a public purpose of the village e.g. running
E a school for the villagers, or a dispensary for them.
In many States government orders have been issued by the State
Government permitting allotment of Gram Sabha land to private
persons and commercial enterprises on payment of some money.
In our opinion all such Government orders are illegal, and should
F be ignored."
42. Keeping in mind the view expressed by this Court in these
and other decisions, we also direct the demolition of the unauthorized
construction by or on behalf ofNIMS onKhasra No. 526. The demolition
should be carried out by the Jaipur Development Authority with the
G assistance of the State Government and the Collector of Jaipur District
011. or before 30'h November, 2017. The Director General of Police of
Rajasthan is directed to render all necessary assistance in the process
of demolition. The cost of demolition and removal of rubble etc. will be
at
___ the expense
"______of NIMS. Any pending application made by NIMS for
H '·(2004) 8 sec 733
NATIONAL INSTITUTE OF MEDICAL SCIENCE UNIVERSITY I 55
RAJASTHAN v. STATE OF RAJASTHAN [MADAN B. LOKUR, J.]

compounding the unauthorized construction or regularizing it stands A
superseded in view of our decision.
43. We are giving these peremptory time bound directions in view
of the fact that the learned Single Judge felt it appropriate, while dismissing
the writ petitions filed by NIMS, to grant interim relieflimited to only 7
days. More importantly, we are of opinion that the possibility of water B
being now made available to Jaipur City in due course of time takes far
greater precedence over the interests of NIMS and those associated
with it.
44. The petitions are dismissed with the above directions.
c
Divya Pandey Petitions dismissed.