Supreme Court of India
THE STATE OF RAJASTHAN AND ANOTHERversusULTRATECH CEMENT LTD
- Citation
- 2022 INSC 871
- Decided
- 26 August 2022
- Disposal
- Dismissed
- Bench
- N V RAMANA
Holding
The Supreme Court upheld the High Court’s order, directing the State to allot the land, holding that the factual findings of the Tehsildar reports are conclusive and the State’s later objections are untenable.
Summary
The State of Rajasthan sought to overturn a Rajasthan High Court order directing it to allot a parcel of land, classified as a ‘Johad’, to Ultratech Cement Ltd. for a cement plant. The High Court had relied on two spot‑inspection reports of the Tehsildar, which found no natural water body or catch‑ment on the land, and on a Gram Panchayat resolution supporting the conversion of the land to ‘Sawai Chak’. The State argued that a later Tehsildar letter indicating a pucca pond should preclude the allotment and that the High Court’s decision conflicted with the Abdul Rahman judgment. The Supreme Court held that the State had never disputed the Tehsildar reports, failed to produce the later letter at the appropriate stage, and therefore could not disregard the factual findings. It further held that the condition of producing a High Court NOC was satisfied by the impugned judgment and that the environmental burden of proof lay with the State, not the company. Consequently, the Court upheld the High Court order and directed the State to process the land allotment within four weeks, dismissing the appeal.
Issues considered
- The State’s right to refuse correction of revenue records and deny allotment of land classified as ‘Johad’ despite Tehsildar reports showing no water body.
- Whether the Abdul Rahman judgment bars allocation of land described as a pond in revenue records when on‑site inspection finds no pond.
- TheAdmissibility and relevance of a later Tehsildar communication alleging a pucca pond in the land.
- Whether the condition that the respondent produce a High Court NOC for ‘Johad’ land is satisfied by the High Court’s judgment.
- The allocation of the burden of proof under environmental law in projects affecting ecological balance.
Legislation cited
- Land Revenue Acts. 92
Subjects
land allotmentJohadrevenue recordsenvironmental lawprecautionary principlepublic trust doctrinemining leasesustainable development
Judgment
[2022] 13 S.C.R. 1 1
THE STATE OF RAJASTHAN AND ANOTHER A
v.
ULTRATECH CEMENT LTD.
(Civil Appeal No. 5841 of 2022)
AUGUST 26, 2022 B
[N. V. RAMANA, CJI, HIMA KOHLI AND
C. T. RAVIKUMAR, JJ.]
Allotment of Land – For setting up a cement plant –
Respondent-company was asked to produce NOC/orders for
C
allocation of ‘Johad’ land from the High Court – The respondent-
company approached the High Court by filing writ petition –
Accompanying the said writ petition were several documents
pertaining to the spot inspection of the site, the reports of the
Tehsildar and the correspondence between the parties to
demonstrate that the subject land that had been classified as ‘Johad’, D
neither fell in the catchment area, nor did water gather there and
there did not exist any natural source of water on the subject land
and therefore, classification of the subject land could be converted
to ‘Siwai Chak’ land – Single Judge of the High Court dismissed the
writ petition – Division Bench of the High Court directed the
E
appellant-State Government to consider the respondent’s
representations – Appellant-State Government passed an order dated
25.01.2016, holding, inter alia, that the subject land having been
recorded in the revenue record as ‘Johad’, no allotment could be
made in favour of the respondent-company – Thereafter, the Division
Bench proceeded to hear the respondent’s appeal on merits and F
allowed the same, directed the appellant-State Government to allot
the subject land in question to the respondent-company and take
consequential steps – Before the Supreme Court, appellant-State by
relying on a letter of Tehsildar stated that in some khasra numbers
of the said village, there exists a pucca pond which acts as a
G
catchment area of rain water – Held: The aforesaid communication
by Tehsildar was not filed by the appellant-State Government before
the High Court at the appropriate stage, well before the date of
passing of the impugned judgment – Nothing prevented the
appellant-State Government from producing the relevant
photographs of the purported pucca pond existing at some spots H
1
2 SUPREME COURT REPORTS [2022] 13 S.C.R.
A within village Baswa – It is not the case of the appellant-State
Government that the earlier reports submitted by the Tehsildar after
conducting a physical spot inspection were manipulated or prepared
in a mala fide manner, nor is there any averment made in the appeal
that departmental action was initiated against the then Tehsildar
for having prepared incorrect reports of the spot inspection – Given
B
the said position, there is no reason to discard the two Inspection
reports prepared by the Tehsildar that form a part of the record –
Both the said reports have stated in clear terms that there is no
natural water body on the subject land and the ‘Gair-Mumkin Johad’
falling under the proposed mining lease area does not fall within
C the water logging area or the catchment area – Therefore, the
appellant-State Government directed to take necessary steps to
process the allotment of the subject land in favour of the respondent-
company.
Dismissing the appeal, the Court
D HELD: 1. It is a matter of record that the appellant–State
Government has not questioned the Reports prepared by the
Tehsildar, Nawalgarh after making spot inspection on two
occasions. The position remains the same even as of now. The
first Report was prepared by the Tehsildar on 19th/27th April,
E 2011 and the second one on 25th November, 2012/05th December,
2012. Both the Reports were categorical in their findings that
there was no natural water body on the subject land classified as
a ‘Johad’ and that the subject land neither fell in the catchment
area, nor did water ever collect there and there was no natural
source of water that existed on the subject land. That being the
F position, we see no reason to permit learned counsel for the
appellant–State Government to rely on a communication
addressed by the Tehsildar to the District Collector, in respect
of a part of the subject land falling in village Baswa to urge that
there exists a pucca pond at some spots, more so when there is
G no explanation for not filing the documents. The aforesaid
communication could have easily been filed by the appellant–State
Government before the High Court at the appropriate stage, well
before the date of passing of the impugned judgment. Nothing
prevented the appellant–State Government from producing the
relevant photographs of the purported pucca pond existing at
H
THE STATE OF RAJASTHAN AND ANOTHER v. ULTRATECH 3
CEMENT LTD.
some spots within village Baswa. It is not the case of the A
appellant–State Government that the earlier Reports submitted
by the Tehsildar, Nawalgarh after conducting a physical spot
inspection had been manipulated or prepared in a mala fide
manner, nor is there any averment made in the appeal that
departmental action was initiated against the then Tehsildar,
B
Nawalgarh for having prepared incorrect Reports of the spot
inspection. Given the said position, there is no reason to discard
the two Inspection Reports prepared by the Tehsildar, Nawalgarh
that form a part of the record. Both the said Reports have stated
in clear terms that there is no natural water body on the subject
land and the ‘Gair–Mumkin Johad’ falling under the proposed C
mining lease area does not fall within the water logging area or
the catchment area. This Court, therefore, decline to give any
weightage to the letter dated 07th July, 2014 addressed by the
Tehsildar, Nawalgarh to the District Collector, Jhunjhunu. [Para
8][14-A-G]
D
2. The High Court has also taken note of the Resolution
passed by the Gram Panchayat, village Baswa and the certificate
issued by the Gram Panchayat which records that no water had
ever accumulated on the subject land and the Gram Panchayat
did not have any objection to the said land being granted to the
respondent–Company for mining lease purpose subject to the E
condition that it would be receiving an equal measure of developed
land in the same village from the respondent–Company in view
of the land being consumed for mining lease purpose. The
respondent–Company has also given undertakings to the High
Court that the environment of the village will not be adversely F
impacted and the ecological balance shall be maintained. One of
the undertakings given by the respondent–Company is that the
site identified for development of an alternate ‘Johad’ would be
identified and developed in a planned manner, so as to create a
catchment area, water harvesting structure and cattle grazing
land. [Para 11][16-F-H; 17-A] G
3. This Court concur with the findings returned in the
impugned judgment which is upheld. The appellant–State
Government is directed to take necessary steps to process the
allotment of the subject land in favour of the respondent–
H
4 SUPREME COURT REPORTS [2022] 13 S.C.R.
A Company. The respondent–Company shall file a fresh
undertaking with the State Government, within the same timeline,
as was filed by it before the High Court, for initiating time bound
activities for the benefit of the surrounding villages, as
compensatory measures for the allocation of the subject land.
The appeal is dismissed while leaving the parties to bear their
B
own expenses. [Para 19][19-H; 20-A-B]
Abdul Rahman v. State of Rajasthan and Others 2004
(4) WLC (Raj.) 435; Director General, Research and
Development v. State of Rajasthan & Others 211 SCC
Online Raj 3197; Vellore Citizens’ Welfare Forum v.
C Union of India and Others (1996) 5 SCC 647 : [1996]
5 Suppl. SCR 241; A. P Pollution Control Board v.
Prof. M. V. Nayudu (Retd.) and Others (1999) 2 SCC
718 : [1999] 1 SCR 235; Lafarge Umiam Mining Private
Limited (Applicant) in T. N. Godarvarman Thirumulpad
D v. Union of India and Others (2011) 7 SCC 338 : [2011]
7 SCR 954; Electrotherm (India) Limited v. Patel
Vipulkumar Ramjibhai and Others (2016) 9 SCC 300 :
2016 (7) JT 487; Common Cause v. Union of India
(2017) 9 SCC 499 : [2017] 13 SCR 361; Alembic
Pharmaceuticals Limited v. Rohit Prajapati and Others
E (2020) 17 SCC 157; Jagpal Singh and Others v. State
of Punjab and Others (2011) 11 SCC 396 : [2011] 2
SCR 250; Narmada Bachao Andolan v. Union of India
(2000) 10 SCC 664 : [2000] 4 Suppl. SCR 94 – referred
to.
F Case Law Reference
[1996] 5 Suppl. SCR 241 referred to Para 4
[1999] 1 SCR 235 referred to Para 4
[2011] 7 SCR 954 referred to Para 4
G
[2017] 13 SCR 361 referred to Para 4
[2011] 2 SCR 250 referred to Para 4
[2000] 4 Suppl. SCR 94 referred to Para 13
H
THE STATE OF RAJASTHAN AND ANOTHER v. ULTRATECH 5
CEMENT LTD.
CIVIL APPELLATE JURISDICTION: Civil Appeal No. 5841 A
of 2022.
From the Judgment and Order dated 26.02.2016 of the High Court
of Judicature for Rajasthan at Jaipur Bench in D.B. Civil Special Appeal
(Writ) No. 73 of 2013.
Dr. Manish Singhvi, Sr. Adv., Arpit Parkash, Vikalp Sharma, Milind B
Kumar, Advs. for the Appellants.
Haren Raval, Sr. Adv., Ujjawal Sharma, Mahesh Agarwal, E. C.
Agrawala, Advs. for the Respondent.
The Judgment of the Court was delivered by C
HIMA KOHLI, J.
1. Leave granted.
2. The appellant–State of Rajasthan1 has assailed the judgment
dated 26th February, 2016, passed by a Division Bench of the High Court
D
of Judicature for Rajasthan Bench at Jaipur whereby the order dated
05th October, 2012, passed by the learned Single Judge dismissing a writ
petition preferred by the respondent–Ultratech Cement Ltd. 2 (S.B. Civil
Writ Petition No. 15416 of 2012) was set aside and its appeal allowed
with a direction to the appellant–State Government to process the
allotment of the land in favour of the respondent–Company for setting E
up a cement plant in Tehsil Nawalgarh, District Jhunjhunu, in terms of
the letter of allotment dated 23rd February, 2012.
3. A brief overview of the facts of the case is necessary.
3.1 With the idea of setting up a Cement plant having the capacity
of 3 million tons of cement per annum in four villages situated in Tehsil F
Nawalgarh, District Jhunjhunu, spreading over 1000 hectares of land,
the respondent–Company purchased/acquired 400 hectares of land
through direct negotiations and took steps to acquire the remaining part
of land through private negotiations, as also by way of allotment through
RIICO. For executing the project of cement manufacturing, the G
respondent–Company applied to the appellant–State Government in the
year 2000 – 2001 for grant of adjoining mining leases for mineral lime
stone (cement grade) in Tehsil Nawalgarh, District Jhunjhunu. A letter
1
In short ‘State Government’
2
In short ‘Company’ H
6 SUPREME COURT REPORTS [2022] 13 S.C.R.
A of intent3 was issued by the appellant–State Government on 16th March,
2002 in respect of two mining leases, but due to non-availability of
environment clearance within the stipulated time, the said LOI was
cancelled by the State Government by order dated 07th February, 2005.
The said order was challenged by the respondent–Company by preferring
a revision petition before the Mines Tribunal which was allowed vide
B
order dated 19th July, 2007 and the matter was remitted back to the
State Government for fresh examination in accordance with law. The
appellant–State Government vide order dated 22nd November, 2007,
restored the LOI subject to compliance of certain conditions and on an
undertaking to be furnished by the respondent–Company. The said LOI
C was however, cancelled by the Mines Tribunal vide order dated
29th July, 2009. Aggrieved by the said cancellation order, the respondent–
Company approached the High Court by filing a writ petition which was
allowed vide order dated 19th August, 2010 and the appellant–State
Government finally issued a LOI on 28th October, 2010.
D 3.2 This time, the District Collector, Jhunjhunu issued an approval
letter dated 23rd February, 2012, for allocation of Government land falling
under mining lease area to the respondent–Company for setting up a
cement plant subject to the fulfillment of certain conditions stipulated
therein. The captioned letter issued by the District Collector, Jhunjhunu
is extracted hereinbelow:
E
“Sir,
Vide above referred letter under above mentioned subject, the
State Government has granted approval for reservation and
allocation of land falling under mining lease area for setting up a
F cement plant is granted under Section 92 of the L.R. Act which
shall be subject to the fulfillment of the below mentioned conditions:-
(i) Approval for allocation of the land recorded as pasture land
in the mining leased area is given in favour of the applicant
company subject to the condition that the company shall
G surrender the land equivalent to the allocated land after
purchasing it in the same village and after developing it as
grazing land and will also make it available to the concerned
Gram Panchayat after doing fencing of the four walls of
the land.
3
H In short ‘LOI’
THE STATE OF RAJASTHAN AND ANOTHER v. ULTRATECH 7
CEMENT LTD. [HIMA KOHLI, J.]
(ii) In-principle consent for allocation of the gair-mumkin johad A
land falling under mining lease area, as applied for by the
company, is given in favour of the company subject to the
condition that company shall purchase other land and
develop it as Johad and surrender it to the Gram Panchayat.
The company shall also produce NOC/orders for allocation
B
of Johad land obtained from Hon’ble High Court.
(iii) Company’s application for allocation will be considered only
after producing permission/NOC of the competent authority
of Panchayat Raj Vibhag and Education Department for
gair-mumkin abadi school, graveyard, maszid etc. situated
on the mining lease area. C
(iv) 0.32 Hectare land in the mining lease area is recorded in
the name of Ajmer Electricity Distribution Corporation Ltd.
Above land shall be allocated in favour of the applicant-
company on producing NOC from the Ajmer Electricity
Distribution Corporation Ltd. D
(v) Consent is issued for allocation of the classified land of
gair-mumkin Bani & gair-mumkin passage as per your
proposal which falls under mining lease area for the purpose
in accordance with rules.
E
Therefore, kindly ensure action as above.
Encl: as above.
Sd/-
District Collector, Jhunjhunu”
3.3 In view of condition No.(iii) contained in the captioned letter F
which called upon the respondent–Company to produce NOC/orders
for allocation of ‘Johad’ land from the High Court, the respondent–
Company approached the High Court by filing S.B. Civil Writ Petition
No.15416/2012. Accompanying the said writ petition were several
documents pertaining to the spot inspection of the site, the Reports of G
the Tehsildar and the correspondence between the parties to demonstrate
that the subject land that had been classified as ‘Johad’, neither fell in
the catchment area, nor did water gather there and there did not exist
any natural source of water on the subject land and therefore,
classification of the subject land could be converted to ‘Siwai Chak’
H
8 SUPREME COURT REPORTS [2022] 13 S.C.R.
A land. Not persuaded by the averments made in the writ petition, the
learned Single Judge dismissed the writ petition at the stage of admission
itself with an observation that it is for the State Government to decide
whether the disputed land is ‘Johad’ land or not and that the Court was
bound by the judgment of the Division Bench of the High Court in the
case of Abdul Rahman v. State of Rajasthan and Others4.
B
3.4 Dissatisfied with the in limine dismissal of its writ petition,
the respondent–Company preferred an appeal before the Division Bench
of the High Court registered as D.B.Special Appeal (Writ) No. 73/2013.
Noting that several representations submitted by the respondent–
Company to the appellant–State Government for examining the matter
C afresh and for making necessary corrections in the revenue records
were pending, vide order dated 23rd November, 2015, the Division Bench
directed the appellant–State Government to consider the respondent’s
representations in the light of the observations made in the case of Director
General, Research and Development v. State of Rajasthan &
D Others5, in particular, para 3 thereof, that is extracted hereinbelow:
“It is conceded on facts that in fact there is no Gair Mumkin Nadi
existing on the spot, therefore the decision rendered by the Division
Bench of this court in (Abdul Rahman Vs. State of Rajasthan
& Ors.) shall not come in the way of the respondents in making
E the allotment. In view of aforesaid factual matrix and considering
the nature of requirement, we direct that let the allotment be •
processed as assured within six weeks from today”.
While passing the aforesaid order, it was made clear that in the
event the appellant– State Government does not decide the representation
F of the respondent–Company, the appeal will be decided on merits.
3.5 In compliance of the aforesaid order, the appellant–State
Government passed an order dated 25th January, 2016, holding inter
alia that the subject land having been recorded in the revenue record as
‘Johad’, no allotment could be made in favour of the respondent–
G Company. In view of the aforesaid stand taken by the appellant–State
Government, the Division Bench proceeded to hear the respondent’s
appeal on merits and allowed the same by virtue of the impugned judgment
whereunder the appellant–State Government has been directed to allot
4
2004(4) WLC (Raj.) 435
5
H 211 SCC Online Raj 3197
THE STATE OF RAJASTHAN AND ANOTHER v. ULTRATECH 9
CEMENT LTD. [HIMA KOHLI, J.]
the subject land in question to the respondent–Company and take A
consequential steps in the matter.
3.6 The High Court has specifically recorded in the impugned
judgment that learned counsel for the appellant–State Government did
not dispute the fact even before the Court that though the subject land in
question was classified as ‘Johad’, it neither fell within any catchment B
area, nor did water ever collect there and there was no natural water
reservoir on the subject land. The court opined that looking at the
topography of the area, the site in question did not have use for any
other purpose at all. In fact, the said site selected for mining, had
commercially viable lime stone deposits and the selection was made
after due consultation with the Gram Panchayat, Baswa. Thus, there C
was no justification for turning down the fact-finding Reports filed by
the Tehsildar, Land Records, Nawalgarh, regarding the status of the
land. In fact, the said Reports had been duly accepted by the appellant–
State Government.
3.7 The impugned judgment went on to record that in Abdul D
Rahman’s case4, referred to by the learned Single Judge, the Court had
only directed the State Government to chalk out a plan for restoration of
the catchment areas to their original shape. The said judgment did not
prohibit alienation of the property held as a public trust except for
highlighting the fact that any such alienation would require a higher degree E
of judicial scrutiny, thus creating a balance between the Doctrine of
Public Trust and the Doctrine of Sustainable Development. It was
observed that a pragmatic view ought to be taken in the matter, more so,
when the area classified as ‘Johad’, did not fall in any catchment area,
nor was there any natural water reservoir for it to be declassified from
the category of ‘Johad’ to ‘Sawai Chak’ land. F
4. Mr. Milind Kumar, learned Standing Counsel appearing for the
appellant–State Government has assailed the impugned judgment by
submitting that the same runs contrary to the judgment of the High Court
in Abdul Rehman’s case4 where it has been held by the Division Bench
that no right can be given to use Nadi land or other water bodies for G
construction activity and that catchment of pond/water reservoir shall
not be allotted for any personal/commercial purposes; that utilizing the
‘Johad’ land for commercial purpose may cause environmental damage;
that the High Court has erred in placing reliance on Director General,
Research and Development5; that there are decisions of this Court as H
10 SUPREME COURT REPORTS [2022] 13 S.C.R.
A in Vellore Citizens’ Welfare Forum v. Union of India and Others6,
A.P Pollution Control Board v. Prof. M. V. Nayudu (Retd.) And
Others7, Lafarge Umiam Mining Private Limited (Applicant) in T.N.
Godarvarman Thirumulpad v. Union of India and Others 8 ,
Electrotherm (India) Limited v. Patel Vipulkumar Ramjibhai
and others 9 , Common Cause v. Union of India 10 , Alembic
B
Pharmaceuticals Limited v. Rohit Prajapati and Others11 that have
highlighted the use of precautionary principle in environmental matters
and held that the burden of proof is on the project proponent who is
proposing to alter the status quo or impact the environment. Reference
was also sought to be placed on the judgment of this Court in Jagpal
C Singh and Others v. State of Punjab and Others12, where directions
were issued to all State Governments to prepare schemes for eviction of
illegal occupants of Gram Sabha land and for restoration of the said land
for common use of the villagers of the area. Learned counsel for the
appellant–State Government went on to refer some additional documents
filed recently, in particular, letter dated 07th July, 2014, addressed by the
D
Tehsildar, Nawalgarh to the District Collector which mentioned the status
of land in one of the four villages identified as mining area in district
Jhunjhunu, namely Village Baswa and stated that in some khasra numbers
of the said village, there exists a pucca pond which acts as a catchment
area of rain water. Some circulars issued by the State Government have
E also been cited which state that all the allotments which were recorded
in the revenue records as nala, river, pond, dam or embankment after
1955 and were converted by changing the land classification from
agricultural purpose to non-agricultural purpose, be referred to the
competent Court with the relevant facts for classification of allotment.
F 5. The aforesaid submissions have been repelled by Mr. Hiren P.
Raval, Senior Advocate appearing for the respondent–Company who
submitted that the present appeal is not maintainable when the appellant–
State Government has already given its in-principle consent for the
respondent–Company to use the subject land for mining purpose subject
G 6
(1996) 5 SCC 647
7
(1999) 2 SCC 718
8
(2011) 7 SCC 338
9
(2016) 9 SCC 300
10
(2017) 9 SCC 499
11
(2020) 17 SCC 157
H 12
(2011) 11 SCC 396
THE STATE OF RAJASTHAN AND ANOTHER v. ULTRATECH 11
CEMENT LTD. [HIMA KOHLI, J.]
to obtaining a No Objection Certificate from the High Court. Once the A
High Court has given a No Objection Certificate in terms of the view
expressed in the impugned judgment, there was no occasion to file the
present appeal. On merits, it was submitted that there is no good reason
for the appellant–State Government to have refused to rectify the error
in the revenue records in respect of the classification of the parcel of
B
land, part of which has been wrongly classified as ‘Gair-Mumkin Johad’
i.e. reservoir land, despite the fact that the Tehsildar, Nawalgarh and the
District Collector, Jhunjhunu submitted two Reports stating inter alia
that there was no water reservoir on the subject land at any point in
time. To substantiate the said submissions, learned counsel referred to
the two Reports submitted by the Tehsildar, Nawalgarh dated 19 th/27th C
April, 2011 and 25th November, 2012/5th December, 2012. He also took
this Court through the recommendations made by the District Collector,
Jhunjhunu calling upon the State Government to examine the matter and
pass appropriate orders. In particular, he referred to the letters dated
19th December, 2012 and 26th, February, 2013, addressed by the District
D
Collector, Jhunjhunu to the Deputy Secretary, Revenue Department of
the State Government recommending change of class of the land in the
revenue records from ‘Gair-Mumkin Johad’ to ‘Sawai Chak’ land, on
the basis of the certificates issued by the Tehsildar, Nawalgarh. Learned
counsel pointed out that at no stage has the appellant–State Government
disputed the Reports of the Tehsildar or the recommendations made by E
the District Collector. Instead, it has been harping on the judgment of the
Division Bench of the High Court of Rajasthan in Abdul Rehman’s
case4, without appreciating that the said judgment has not declared that
alienation of property held as a public trust, is totally prohibited. It was
submitted that the fact situations of each case would have to be examined
F
before taking a decision and in the instant case, it is not disputed by the
appellant–State Government that the subject land does not fall in any
catchment area, water does not collect there and there is no natural
water reservoir on the land. In all this back and forth that commenced in
the year 2000 and is continuing till now, the environment clearances
issued in favour of the respondent–Company are going to lapse at the G
end of the year 2022, which would automatically result in cancellation of
the LOI issued by the appellant–State Government, thus, leaving the
respondent–Company high and dry for no fault attributable to it. It was
therefore urged that the impugned judgment does not deserve to be
interfered with, as it is based on fact finding Reports submitted by the
H
12 SUPREME COURT REPORTS [2022] 13 S.C.R.
A revenue authorities that have not been questioned by the appellant–State
Government till date.
6. We have heard the arguments advanced by the learned counsel
for the parties, perused the impugned judgment and the documents placed
on record. The only issue that arises for the consideration of this Court
B is that once an in-principle consent has already been accorded by the
appellant–State Government for reservation and allocation of the subject
land under the mining lease in favour of the respondent–Company for it
to set up a cement plant and the condition inserted in the approval letter
dated 23rd February, 2012 that the respondent–Company should produce
a No Objection Certificate/order from the High Court permitting allocation
C of ‘Gair–Mumkin Johad’ land stands satisfied by virtue of the impugned
judgment, would a challenge still lie against the same at the instance of
the appellant–State Government?
7. A perusal of the impugned judgment indicates the following
factors that have weighed with the High Court for allowing the appeal
D preferred by the respondent–Company :-
(a) That the Tehsildar, Nawalgarh had made a physical spot
inspection of the subject land in question and submitted a
detailed Report to the District Collector, Jhunjhunu on
19th April, 2011 stating that the subject land, classified as a
E ‘Johad’ neither fell in the catchment area, nor did water
ever collect there and that no natural source of water existed
on the subject land;That the subject land was again inspected
by the Tehsildar, Land Records, Nawalgarh, who sent a
Report to the District Collector, Jhunjhunu on 25th November,
F 2012 / 05th December, 2012 stating inter alia that there is
no natural water body on the subject land and the ‘Gair-
Mumkin Johad’ falling under the proposed mining lease
area, does not fall within the water logging area or the
catchment area. Therefore, a recommendation was made
for change of the class of land and for recording it as ‘Sawai
G Chak’ land;
(b) That the District Collector, Jhunjhunu made his
recommendations on two different occasions to the State
Government for issuing necessary orders to correct the
revenue records and change the classification of the land
H to be recorded as ‘Sawai Chak’ land.
THE STATE OF RAJASTHAN AND ANOTHER v. ULTRATECH 13
CEMENT LTD. [HIMA KOHLI, J.]
(c) That on receiving a communication dated 01st February, A
2013 from the State Government calling upon him to re-
examine the matter and pass appropriate orders, the District
Collector, Jhunjhunu had once again made a
recommendation vide letter dated 26th February, 2013, that
necessary orders for correction of the revenue records ought
B
to be made in the instant case;
(d) That the Gram Panchayat Baswa, Tehsil Nawalgarh, District
Jhunjhunu passed Resolution No.21 dated 03rd February,
2011, stating that no water had ever accumulated in the
subject land and the Gram Panchayat had no objection in
granting the said land classified as ‘Johad’, to the C
respondent–Company for mining lease purposes, subject to
the Company giving equal measure of developed land to
the Gram Panchayat in the same village;
(e) the Court took note of the undertaking given by the
respondent–Company in the writ proceedings for initiating D
the following activities for the benefit of the surrounding
villages –
(i) Equal and alternate land to be developed as ‘Johad’ in
place of ‘Johad’ land in the mining activity area in the
same village so that villagers could benefit from the E
basic amenities.
(ii) Creation of a water reservoir in the mined out area.
(iii) Development of water harvesting structures for
augmenting ground water recharging in the area. F
(iv) Initiation of CSR activities in the surrounding villages.
(f) The respondent–Company gave an undertaking before the
Court that development of the site for alternate ‘Johad’
would be done in a planned manner where the catchment
area, water harvesting structures and cattle grazing land G
would be developed. The Company also undertook to
convert Dug-cum-Bore Well (DCB Well) into injection wells
in order to develop suitable drainage pattern for
augmentation of ground water table;
H
14 SUPREME COURT REPORTS [2022] 13 S.C.R.
A 8. It is a matter of record that the appellant–State Government
has not questioned the Reports prepared by the Tehsildar, Nawalgarh
after making spot inspection on two occasions. The position remains the
same even as of now. The first Report was prepared by the Tehsildar on
19th/27th April, 2011 and the second one on 25th November, 2012/05th
December, 2012. Both the Reports were categorical in their findings
B
that there was no natural water body on the subject land classified as a
‘Johad’ and that the subject land neither fell in the catchment area, nor
did water ever collect there and there was no natural source of water
that existed on the subject land. That being the position, we see no reason
to permit learned counsel for the appellant–State Government to rely on
C a communication dated 02nd July, 2014, addressed by the Tehsildar to
the District Collector, in respect of a part of the subject land falling in
village Baswa to urge that there exists a pucca pond at some spots,
more so when there is no explanation for not filing the documents. The
aforesaid communication could have easily been filed by the appellant–
State Government before the High Court at the appropriate stage, well
D
before the date of passing of the impugned judgment. Nothing prevented
the appellant–State Government from producing the relevant photographs
of the purported pucca pond existing at some spots within village Baswa.
It is not the case of the appellant–State Government that the earlier
Reports submitted by the Tehsildar, Nawalgarh after conducting a
E physical spot inspection had been manipulated or prepared in a mala
fide manner, nor is there any averment made in the appeal that
departmental action was initiated against the then Tehsildar, Nawalgarh
for having prepared incorrect Reports of the spot inspection. Given the
said position, there is no reason to discard the two Inspection Reports
prepared by the Tehsildar, Nawalgarh that form a part of the record.
F
Both the said Reports have stated in clear terms that there is no natural
water body on the subject land and the ‘Gair–Mumkin Johad’ falling
under the proposed mining lease area does not fall within the water
logging area or the catchment area. We, therefore, decline to give any
weightage to the letter dated 07th July, 2014 addressed by the Tehsildar,
G Nawalgarh to the District Collector, Jhunjhunu.
9. The Circulars dated 26th June, 2012, 17th April, 2013 and 26th
July, 2017 issued by the Revenue Department can also not be of any
assistance to the appellant–State Government, for the simple reason
that the said circulars came to be issued in compliance of the judgments
H of the High Court and this Court directing removal of encroachment
THE STATE OF RAJASTHAN AND ANOTHER v. ULTRATECH 15
CEMENT LTD. [HIMA KOHLI, J.]
from the Gram Panchayat land and eviction of unauthorized occupants A
therefrom. The present case does not fall in the above categories for the
simple reason that the respondent–Company has applied through proper
channel for allotment of land for mining purpose; it has received requisite
environment clearances followed by LOIs issued by the appellant–State
Government. Armed with the necessary approvals from the State
B
Government for reservation and allocation of land falling under mining
lease area, the respondent–Company had approached the revenue
authorities for setting up a plant on the subject land and requested that
necessary changes be made in the revenue records pertaining to land
described as ‘Johad’ at certain spots, where in fact, no ‘Johad’ actually
existed. In this context, the recommendations made by the District C
Collector, Jhunjhunu gain significance. The first letter in this regard was
addressed by the District Collector to the Deputy Secretary, Revenue
Department of the appellant–State Government on 19th December, 2012,
relevant extract whereof is reproduced hereinbelow:
“When a site inspection report in this connection was sought D
from Tehsildar, Nawalgarh, he informed vide his letter No.2501
dated 5.12.12 that there is a government primary school building
on the gair-mumkin Johad land of Khasra No.493 area 3.96
hectare, Khasra No.546 raqba 16. 73 hectare, Khasra No.608
raqba 17.55 hectare, Khasra No.649 raqba 4.81 hectare, Khasra
No.1304/493 raqba 0.14 hectare and Khasra No.1316/ 608 raqba E
0.11 hectare land situated in village Basawa and rest of the land
does not come within the catchment area. Land of the above
mentioned Khasra Numbers does not have any natural water
reservoir, nor it is in the catchment area. Tehsildar, Nawalgarh
has recommended to change its class and declare it Sivaychak F
land.
In perspective of the above decisions of Hon’ble Rajasthan
High Court and enclosing herewith the Tehsildar Report attached
with letter No.2501 dated 5.12.12 (copy enclosed) and copy of
the enclosed Jamabandi for Samvat 2067-2070, it is submitted G
that Tehsildar’s report has been analyzed and I am satisfied with
the report. As per the site inspection report of the Gair-mumkin
Johad land of Khasra No.493 area 3.96 hectare, Khasra No.546
raqba 16.73 hectare, Khasra No.608 raqba 17.55 hectare, Khasra
No.649 raqba 4.81 hectare, Khasra No.1304/4 93 raqba 0.14
H
16 SUPREME COURT REPORTS [2022] 13 S.C.R.
A hectare and Khasra No.1316/608 raqba 0.11 hectare land situated
in village Basawa, there is a government primary school on 0.10
hectare land out of 16.73 hectare of Khasra No.546 it is
recommended that class of the above land may be changed and
allocated to M/s Ultratech Cement Limited Co. in accordance
with law.”
B
10. After receiving the aforesaid letter, the Secretary, Revenue
Department addressed a letter dated 1st February, 2013 to the District
Collector, Jhunjhunu clearly stating inter alia that only he as the ‘District
Collector’ must certify whether the land in question is a ‘Johad’ land or
not and the said certification is not to be done by the State Government.
C Therefore, the District Collector was directed to visit the site himself
and inquire into the matter and then issue appropriate orders. In
compliance of the said directions, the District Collector wrote another
letter dated 26th February, 2013 to the Deputy Secretary, Revenue
Department, reiterating that the revenue records do not record any water
D reservoir in the relevant khasra numbers of the subject land and it was in
this background that letter dated 19th December, 2012 had been issued
by him recommending change of class of the land on the basis of the
certification of the Tehsildar, Nawalgarh in the revenue records. It was
again stated by the District Collector that in the light of the Report of the
Tehsildar and the copies of old and current revenue records, orders may
E be issued by the State Government with regard to change of class of the
proposed land that was entered into revenue records as ‘Johad’.
11. The aforesaid material has been examined at length in the
impugned judgment. The High Court has also taken note of the Resolution
passed by the Gram Panchayat, village Baswa and the certificate issued
F by the Gram Panchayat which records that no water had ever
accumulated on the subject land and the Gram Panchayat did not have
any objection to the said land being granted to the respondent–Company
for mining lease purpose subject to the condition that it would be receiving
an equal measure of developed land in the same village from the
G respondent–Company in view of the land being consumed for mining
lease purpose. The respondent–Company has also given undertakings
to the High Court that the environment of the village will not be adversely
impacted and the ecological balance shall be maintained. One of the
undertakings given by the respondent–Company is that the site identified
for development of an alternate ‘Johad’ would be identified and developed
H
THE STATE OF RAJASTHAN AND ANOTHER v. ULTRATECH 17
CEMENT LTD. [HIMA KOHLI, J.]
in a planned manner, so as to create a catchment area, water harvesting A
structure and cattle grazing land.
12. Given the above background, reliance placed by learned counsel
for the appellant–State Government on the judgments cited by him, is
found to be misplaced. In Vellore Citizens’ Welfare Forum6 and A.P
Pollution Control Board7, this Court recognized the requirement of B
reconciliation between the concept of development and ecology as a
facet of sustainable development. The relevant Articles of the Constitution
of India including Articles 21, 47, 48-A, 51-A (g) that protect and improve
the environment have been highlighted and the Precautionary Principle
and Polluter-Pays Principle have been declared to be a part of the
environmental law of the country. It has also been accepted that the C
burden of proof should lie on the entity proposing an activity that is
potentially harmful to the environment. There can be no quarrel with the
above position, but neither of the aforesaid judgments are relevant in the
facts and circumstances of the instant case, inasmuch as no burden has
been placed on the respondent–Company to demonstrate that the industry D
proposed to be set up by it, shall not cause any serious and/or irreversible
harm to the ecology of the area. On the contrary, it is the stand of the
Revenue Department of the appellant–State Government itself that there
is no likelihood of any damage to the ecology of the area as the spot
inspections reveal that there is no pond existing on the subject land that
may be impacted adversely. E
13. In Narmada Bachao Andolan v. Union of India13, this Court
had the occasion to discuss the Precautionary Principle and it was held
that the said principle and the corresponding burden of proof on the
person who wants to change the status quo, will ordinarily apply in the
case of polluting or other projects or industry where the extent of damage F
likely to be inflicted, is not known. But when the effect of the project is
known, then the principles of sustainable development would come into
play which will ensure that mitigative steps can be taken to preserve the
ecological balance. In the present case, there is no such uncertainty due
to lack of availability of data or scientific material about the damage if G
any, likely to be caused to the ecological balance of the area. Instead,
detailed spot inspections have been conducted by the revenue authorities
from time to time that establish that there is no ‘Johad’ existing on the
subject land. Despite that, the respondent–Company has been directed
13
(2000) 10 SCC 664 H
18 SUPREME COURT REPORTS [2022] 13 S.C.R.
A to develop an alternate ‘Johad’ in a planned manner at the same area,
as a mitigative step which it has undertaken to execute.
14. In Lafarge Umiam Mining Private Limited8, this Court has
recognized the fact that the environment has different facets and universal
dependence of humans for the use of environmental resources for the
B most basic needs, inescapably requires choices to be made at different
levels on environmental protection and factor in the risks which are to
be regulated, as recognized by the concept of sustainable development.
Conceding that it is impossible to lay down ‘across-the-board’ principles
and much would depend on the facts of each case, this Court opined
that what was required to be seen was how much protection would be
C sufficient and whether ends would be served by diverting resources to
other uses and at the same time, strike a fine balance between
environmental protection and environmental risk. No such fine balance
is required to be struck in the instant case when admittedly, the spot
inspections show that there does not exist any ‘Johad’ on the subject
D land that is likely to be affected on account of the change proposed in
the revenue records.
15. The directions issued in Jagpal Singh’s case12 calling upon
State Governments to prepare a scheme for eviction of illegal/
unauthorized occupants of Gram Sabha land also do not come in the
E way of the respondent–Company. The purpose of the said direction was
to prepare a scheme for removal of illegal occupants expeditiously. This
does not prevent the respondent–Company from approaching the Court
for correction in the revenue records when the site inspection Reports
prepared by the Revenue Authorities show that there is no water body
or catchment area on the subject land.
F
16. The focus in the case of Electrotherm (India) Limited9 was
on conducting public hearings as a mandatory requirement of the
environmental clearance process and the Court has frowned upon doing
away with public hearings in the course of the decision-making process.
In the case of Common Cause10, this Court was seized of the aspect of
G illegal/unlawful mining in the State of Odisha and it was observed that
Courts cannot interfere with the Mining Policy or lay down limits on the
extent of mining activity that should be permitted by the State/Central
Government. The said decision does not have any application to the
facts of the instant case where the appellant–State Government has
H already given an in-principle consent for setting up a cement plant in
THE STATE OF RAJASTHAN AND ANOTHER v. ULTRATECH 19
CEMENT LTD. [HIMA KOHLI, J.]
favour of the respondent–Company and the High Court was only required A
to examine the aspect of correction in the revenue records in relation to
the subject land where a ‘Johad’ was mentioned, but none existed at
site.
17. In Alembic Pharmaceuticals’ case11, the issue before this
Court was with respect to the operation of industries without obtaining B
prior environmental clearance for a long time and their liability on account
of such non-compliance. Noting that the industries had evaded the legally
binding regime of obtaining environment clearance, it was held that
penalty must be imposed on them for disobedience and non-compliance
of the rules and regulations. Here, the respondent–Company has
admittedly received environmental clearances and in spite of the same, C
its project has not taken off due to various hurdles created by the
appellant–State Government. Clearly, the present case is not one of
breach of any norms for imposition of penalty on the respondent–
Company.
18. Even the judgment of the Division Bench of the Rajasthan D
High Court in the case of Abdul Rehman4 is being completely misread
by the appellant–State Government. The focus in the said judgment was
on the restoration of the catchment area to its original shape for which a
plan was directed to be drawn up which included demarcation of the
catchment areas, demarcation of drainage channels etc. Nowhere in E
the said judgment has it been observed that the description of a land as
a pond in the revenue records, when no pond exists on site, cannot be
corrected after conducting a spot inspection. We are inclined to accept
the submission made by learned counsel for the respondent–Company
that in the absence of any pond at the spot, the decision rendered in the
case of Abdul Rehman4 cannot be an impediment for processing the F
application of the respondent–Company for allocation of the subject land,
for setting up a cement plant. The High Court has rightly referred to the
decision of this Court in Director General, Research and
Development5, where noting the fact that there was no ‘Gair-Mumkin’
Nadi existing on the spot, it was observed that the decision of the High G
Court in Abdul Rahman4 will not come in the way of allotting the land to
the petitioner.
19. For the aforesaid reasons, we concur with the findings returned
in the impugned judgment which is upheld. The appellant–State
Government is directed to take necessary steps to process the allotment H
20 SUPREME COURT REPORTS [2022] 13 S.C.R.
A of the subject land in favour of the respondent–Company within four
weeks from today. The respondent–Company shall file a fresh
undertaking with the State Government, within the same timeline, as
was filed by it before the High Court, for initiating time bound activities
for the benefit of the surrounding villages, as compensatory measures
for the allocation of the subject land.
B
The appeal is dismissed while leaving the parties to bear their
own expenses.
Ankit Gyan Appeal dismissed.
C
D
E
F
G
H
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