{"id":212328,"date":"2009-11-25T00:00:00","date_gmt":"2009-11-24T18:30:00","guid":{"rendered":"https:\/\/www.legalindia.com\/judgments\/mather-projects-pvt-ltd-vs-government-of-kerala-on-25-november-2009"},"modified":"2017-11-19T09:24:00","modified_gmt":"2017-11-19T03:54:00","slug":"mather-projects-pvt-ltd-vs-government-of-kerala-on-25-november-2009","status":"publish","type":"post","link":"https:\/\/www.legalindia.com\/judgments\/mather-projects-pvt-ltd-vs-government-of-kerala-on-25-november-2009","title":{"rendered":"Mather Projects Pvt.Ltd vs Government Of Kerala on 25 November, 2009"},"content":{"rendered":"
Kerala High Court<\/div>\n
Mather Projects Pvt.Ltd vs Government Of Kerala on 25 November, 2009<\/div>\n
       \n\n  \n\n  \n\n \n \n  IN THE HIGH COURT OF KERALA AT ERNAKULAM\n\nWP(C).No. 13085 of 2009(E)\n\n\n1. MATHER PROJECTS PVT.LTD\n                      ...  Petitioner\n2. NOOR MOHAMMED NOORISHA\n\n                        Vs\n\n\n\n1. GOVERNMENT OF KERALA\n                       ...       Respondent\n\n2. THRIKKAKARA GRAMA PANCHAYATH\n\n                For Petitioner  :SRI.V.V.ASOKAN\n\n                For Respondent  : No Appearance\n\nThe Hon'ble MR. Justice K.BALAKRISHNAN NAIR\nThe Hon'ble MR. Justice P.BHAVADASAN\n\n Dated :25\/11\/2009\n\n O R D E R\n                                                              \"C.R.\"\n     K. BALAKRISHNAN NAIR & P. BHAVADASAN, JJ.\n\n                  ------------------------------\n                   W.P.(C) Nos.13085 of 2009\n     35282\/07, 38032\/07, 38049\/07, 2241\/08, 5222\/08,\n       5325\/08, 5326\/08, 5493\/08, 5522\/08, 5524\/08,\n       5624\/08, 6330\/08, 6649\/08, 6650\/08, 7202\/09,\n       7274\/08, 7375\/08, 7775\/08, 8388\/08, 8403\/08,\n     8751\/08, 8752\/08, 12406\/08, 12541\/08, 16993\/08,\n         13780\/08, 17217\/08, 17725\/08, 37432\/08,\n                     8054\/09 and 10993\/09\n                  ------------------------------\n\n            Dated this, the 25th day of November, 2009\n\n                          JUDGMENT\n<\/pre>\n
Balakrishnan Nair, J.\n<\/p>\n
           In this batch of Writ Petitions, the petitioners, who<\/p>\n
are builders, are challenging the transitional steps taken by<\/p>\n
the Government after the extension of the Kerala Municipality<\/p>\n
Building Rules to the Thrikkakara Grama Panchayat and other<\/p>\n
Grama Panchayats in the State        and also the    instructions<\/p>\n
issued by the Government to the Local Bodies as to how the<\/p>\n
constructions progressing on the strength of NOC obtained<\/p>\n
from the Panchayats concerned, at the time of extension of<\/p>\n
Building Rules, should be dealt with. Though several reliefs<\/p>\n
are sought, the main reliefs pressed before us in these Writ<\/p>\n
Petitions are the following:<\/p>\n
\n\nW.P(C) No.13085\/09\nand connected cases              - 2 -\n\n<\/pre>\n
      (i) declare that Rule 3(iii) of the Kerala Municipality<\/p>\n
Building Rules which deals with the applicability of Building<\/p>\n
Rules to Grama Panchayats, being a rule framed under the<\/p>\n
Municipality Act, cannot have any application to the<\/p>\n
Panchayats and therefore, the said sub-rule is ultra vires.<\/p>\n
      (ii) to set aside the   provision, providing for collection<\/p>\n
of permit fee for buildings which are completed but not yet<\/p>\n
numbered, in paragraph 5 of Ext.P4(a) Circular dated<\/p>\n
3.7.2007 (produced in WP(C) No.13085\/09) issued by the<\/p>\n
Government.\n<\/p>\n
Most of the other grievances raised against Ext.P4(a) have<\/p>\n
been redressed by Ext.P4(b) Circular dated 3.4.2008, issued<\/p>\n
by the Government.\n<\/p>\n
W.P(C) No.13085 of 2009:\n<\/p>\n
            2. This Writ Petition is treated as the main case for<\/p>\n
the purpose of referring to the facts and the exhibits. The<\/p>\n
brief facts of the case are the following:<\/p>\n
            The   petitioners   constructed   a   multi-storeyed<\/p>\n
residential complex, on the strength of the NOC issued by the<\/p>\n
W.P(C) No.13085\/09
\nand connected cases            – 3 –\n<\/p>\n
Thrikkakara Grama Panchayat.     The construction was almost<\/p>\n
complete, but the building numbers were yet to be allotted.<\/p>\n
At that stage, the Government issued Ext.P3 notification<\/p>\n
dated 6.11.2006, invoking its power under Section 274(1) of<\/p>\n
the Kerala Panchayat Raj Act, 1994, extending certain<\/p>\n
provisions of the Kerala Municipality Act, 1994 and all the<\/p>\n
provisions of the Kerala Municipality Building Rules, 1999 to<\/p>\n
the Thrikkakara Grama Panchayat.       The Government also<\/p>\n
issued a notification, GO(Ms) No.150\/2007\/LSGD dated 6th<\/p>\n
June, 2007, extending certain provisions of the         Kerala<\/p>\n
Municipality   Act, 1994 and all the provisions the Kerala<\/p>\n
Municipality Building Rules, 1999 (for short, ‘Building Rules’)<\/p>\n
to all the Village Panchayats in the State.        Later, the<\/p>\n
Government issued Ext.P4 Circular dated 20.6.2007 stating<\/p>\n
the guidelines to be followed by the Grama Panchayats at the<\/p>\n
transitional stage of implementation of the Building Rules.<\/p>\n
The guidelines to be followed while implementing the Building<\/p>\n
Rules    in   the   Thrikkakara   Grama    Panchayat,    were<\/p>\n
communicated      by  Ext.P4(a)  Circular  dated   20.7.2007.<\/p>\n
\n\nW.P(C) No.13085\/09\nand connected cases             - 4 -\n\n<\/pre>\n
Paragraph 5 of Ext.P4(a) being relevant for the purpose of this<\/p>\n
case, its translation is quoted below for convenient reference.<\/p>\n
              “For the buildings, the structure of which<\/p>\n
         is completed but which has not so far been<\/p>\n
         numbered, permit fee will be applicable”.<\/p>\n<\/blockquote>\n
Later, the Government issued Ext.P4(b) Circular dated<\/p>\n
3.4.2008, redressing many of the grievances pointed out by<\/p>\n
the petitioners against the conditions in Ext.P4 and P4(a),<\/p>\n
but the stipulation regarding collection of permit           fee<\/p>\n
mentioned above remained as such and was applicable in the<\/p>\n
case of all the Grama Panchayats in the State.<\/p>\n
            3. The petitioners attack       the above quoted<\/p>\n
stipulation regarding collection of permit fee, after the<\/p>\n
construction is over but before the building is numbered.<\/p>\n
They submit, the same is highly arbitrary and unjust.         In<\/p>\n
many of the cases, the floor area ratio (for short, ‘FAR’) of<\/p>\n
their buildings exceeds three. The rate of fee leviable for such<\/p>\n
W.P(C) No.13085\/09
\nand connected cases              – 5 –\n<\/p>\n
buildings is excessive and therefore, the impugned stipulation<\/p>\n
causes serious prejudice to the petitioners, it is submitted.<\/p>\n
           4.    Identical grievances are raised in other writ<\/p>\n
petitions also.         The concerned Panchayats and the<\/p>\n
Government have filed counter affidavits in some of the cases,<\/p>\n
supporting the demand of permit fee.\n<\/p>\n<\/p>\n
           5. We heard the learned counsel on both sides.<\/p>\n
Sri.Mayankutty Mather, learned counsel for the petitioner,<\/p>\n
re-iterated the above mentioned contentions, regarding<\/p>\n
collection of permit fee for the buildings, the construction of<\/p>\n
which was completed in accordance with the NOC issued by<\/p>\n
the Grama Panchayat. The learned counsel also submitted<\/p>\n
that Rule 3(iii) of the Building Rules is unauthorised. Invoking<\/p>\n
the power under the Kerala Municipality Act, the Government<\/p>\n
cannot frame a subordinate legislation meant for the Grama<\/p>\n
Panchayats,      it   is   submitted.        Learned    Counsel,<\/p>\n
Sri.C.K.Karunakaran, who appeared in the connected writ<\/p>\n
W.P(C) No.13085\/09
\nand connected cases             – 6 –\n<\/p>\n
petitions supported the above submissions and further<\/p>\n
submitted that the Grama Panchayat has issued the NOC,<\/p>\n
under the provisions of Chapter XXI of the Kerala Panchayat<\/p>\n
Raj Act, 1994. All the usual formalities for submitting the<\/p>\n
application for building permit under the Building Rules have<\/p>\n
been followed while submitting the application for NOC to the<\/p>\n
Panchayat.     The construction was undertaken only with the<\/p>\n
permission of the Panchayat, issued in the form of NOC. So,<\/p>\n
the builder has a vested right to complete the construction in<\/p>\n
accordance with the plan, submitted at the time of grant of<\/p>\n
NOC.    There is no justification, therefore, to demand the<\/p>\n
permit fee payable as per the Building Rules, it is pointed out.<\/p>\n
           6. We heard Mr.Shanavas Khan, learned counsel<\/p>\n
appearing for the Thrikkakara Grama Panchayat.               He<\/p>\n
supported the validity of the impugned provisions.          The<\/p>\n
learned Special Government Pleader, Mr.C.M.Suresh Babu,<\/p>\n
also supported the actions of the Government and prayed for<\/p>\n
dismissal of the Writ Petitions.<\/p>\n
\n\nW.P(C) No.13085\/09\nand connected cases             - 7 -\n\n<\/pre>\n
           7. Section 274 of the Kerala Panchayat Raj Act,<\/p>\n
1994, empowers the Government to extend the provisions of<\/p>\n
the Municipal Laws and the Rules framed thereunder to the<\/p>\n
Grama Panchayats also. The said section reads as follows:<\/p>\n
                 “274. Extension of the provisions of<\/p>\n
           the Municipal laws or of the Rules<\/p>\n
           thereunder.- (1) The Government may,<\/p>\n
           whether at the request of the Panchayat or<\/p>\n
           otherwise, by notification in the Gazette,<\/p>\n
           declare that any of the provisions of the law<\/p>\n
           relating to Municipalities in the State in<\/p>\n
           force for the time being or of any rules made<\/p>\n
           thereunder, shall be extended to, and be in<\/p>\n
           force, in a Panchayat area or any specified<\/p>\n
           place therein.\n<\/p><\/blockquote>\n
                 (2) The provisions so notified shall be<\/p>\n
           construed with such alterations not affecting<\/p>\n
           the substance as may be necessary or proper<\/p>\n
           for the purpose of adopting them to the<\/p>\n
           Panchayat area or any specified place<\/p>\n
           therein.”<\/p><\/blockquote>\n
           8.   In this case, Ext.P3 notification and also the<\/p>\n
notification dated 6.6.2007 were issued invoking the power of<\/p>\n
W.P(C) No.13085\/09
\nand connected cases             – 8 –\n<\/p>\n
the Government under Section 274 of the Kerala Panchayat<\/p>\n
Raj Act, quoted above. The provisions under Chapter XXI of<\/p>\n
the Kerala Panchayat Raj Act deal, generally, with the<\/p>\n
buildings. Section 235A(i) of the Panchayat Raj Act enables<\/p>\n
the Government to frame building rules for the Grama<\/p>\n
Panchayats.      Section 254(2)(xviii)     also   enables the<\/p>\n
Government      to  frame   rules    concerning  regulation   or<\/p>\n
restriction of construction of buildings and the use of building<\/p>\n
sites. But, the Government, instead of framing rules under<\/p>\n
the Kerala Panchayat Raj Act, decided to adopt the provisions<\/p>\n
of the Kerala Municipality Building Rules, invoking its power<\/p>\n
under Section 274 of the Kerala Panchayat Raj Act, which we<\/p>\n
have quoted above. Rule 3 of the Kerala Municipality Building<\/p>\n
Rules, 1999 reads as follows:\n<\/p>\n
    “3. Applicability.- These rules shall apply to.-<\/p>\n<\/blockquote>\n
          (i) any public or private building as described<\/p>\n
   below, namely:-\n<\/p><\/blockquote>\n
           (a) where a building is newly erected, these<\/p>\n
   rules shall apply to the designs and construction of the<\/p>\n
   building;\n<\/p><\/blockquote>\n
W.P(C) No.13085\/09
\nand connected cases             – 9 –\n<\/p>\n
           (b) where the building is altered, these rules<\/p>\n
   shall apply to the altered portion of the building;<\/p>\n
           (c) where the occupancy or use of a building is<\/p>\n
   changed, these rules shall apply to all parts of the<\/p>\n
   building affected by the change.\n<\/p>\n
           (d) where addition or extension is made to a<\/p>\n
   building, the rules shall apply to the addition or<\/p>\n
   extension only, but for calculation of floor area ratio<\/p>\n
   and coverage permissible and for calculation of<\/p>\n
   required off street parking area to be provided, the<\/p>\n
   whole building (existing and the proposed) shall be<\/p>\n
   taken into account;\n<\/p>\n
       (ii) all lands which is proposed to be developed or<\/p>\n
   redeveloped for construction of building;<\/p>\n
       (iii) all developments and constructions existing or<\/p>\n
   proposed in any village panchayat area to which the<\/p>\n
   provisions of these rules stand extended.”<\/p>\n
                                      (emphasis supplied)<\/p>\n
Sub-rule (iii) of Rule 3, provides that, all developments and<\/p>\n
constructions existing or proposed in any village panchayat<\/p>\n
area to which the provisions of these Rules are extended,<\/p>\n
shall also be covered by the Kerala Municipality Building<\/p>\n
Rules. The petitioners attack the said provision as ultra vires<\/p>\n
W.P(C) No.13085\/09
\nand connected cases            – 10 –\n<\/p>\n
and unauthorised. But, we feel that even in the absence of<\/p>\n
the said provision, the Kerala Municipality Building Rules will<\/p>\n
apply to the notified Panchayats, if a notification to that effect<\/p>\n
is issued under Section 274 of the Kerala Panchayat Raj Act.<\/p>\n
Therefore, the challenge against that sub-rule is only a futile<\/p>\n
attempt.   Further, we are of the view that when a rule is<\/p>\n
framed, even if a wrong provision is quoted or a relevant<\/p>\n
provision is not quoted, still the rule is valid, if the<\/p>\n
Government have the power to frame the rule. The substance<\/p>\n
and not the form is important.     In view of the provisions in<\/p>\n
Sections 235A and 254(2)(xviii) of the Kerala Panchayat Raj<\/p>\n
Act, the Government have the power to frame Building Rules<\/p>\n
for the Grama Panchayats.      So, invoking that power, the<\/p>\n
Government can say that the Kerala Municipality Building<\/p>\n
Rules will apply to Grama Panchayats to which they are<\/p>\n
extended. So, sub-rule(iii) of Rule 3 of the Kerala Municipality<\/p>\n
Building Rules, 1999 is intra-vires and does not suffer from<\/p>\n
any infirmity.<\/p>\n
\n\nW.P(C) No.13085\/09\nand connected cases             - 11 -\n\n<\/pre>\n
            9.   The next point to be considered is whether<\/p>\n
the collection of permit fee stipulated in paragraph 5 of<\/p>\n
Ext.P4(a) is valid or not. It is true that fee is collected for a<\/p>\n
service rendered. There should be quid pro quo, but the<\/p>\n
same should not be weighed in golden scales.          If there is<\/p>\n
some nexus with the service provided, normally, the courts<\/p>\n
will uphold the levy. In this case, the NOC issued by the<\/p>\n
Panchayat, did not touch upon the structural plan for which<\/p>\n
detailed provisions are contained in the Kerala Municipality<\/p>\n
Building Rules. They provide, inter alia, what should be the<\/p>\n
total coverage of the building with reference to the total area<\/p>\n
of the land. For the constructions of the nature involved in<\/p>\n
this case, it is 65%. The floor area ratio, which is a ratio<\/p>\n
between the area of the plot and total plinth area of the<\/p>\n
building is also governed by the restrictions under the Building<\/p>\n
Rules. For constructions of this nature, the FAR allowed is<\/p>\n
three. It may go up to four. There are specific provisions<\/p>\n
concerning the width of the access to the building, open space<\/p>\n
on all sides of the building, the parking area to be provided,<\/p>\n
W.P(C) No.13085\/09
\nand connected cases              – 12 –\n<\/p>\n
the size of the rooms, ventilation etc.     The provisions of<\/p>\n
Chapter XXI of the Kerala Panchayat Raj Act are totally silent<\/p>\n
on those details.    In other words, the said field was not<\/p>\n
occupied by any pre-existing rules. The builders were free to<\/p>\n
build, according to their volition.     But, once the Kerala<\/p>\n
Municipality Building Rules are enforced in Panchayats, the<\/p>\n
construction can be made only in accordance with the Building<\/p>\n
Rules.   Normally, the builders have to apply and obtain a<\/p>\n
building permit and further construction can be proceeded<\/p>\n
with only in accordance with the same. If that be so,<\/p>\n
they would have to pay the permit fee, and also modify the<\/p>\n
plan wherever necessary and they cannot build beyond the<\/p>\n
FAR and coverage permitted. But, in this case, we notice that<\/p>\n
while the Government issued instructions to the local<\/p>\n
authorities, no such stipulations were made. The Government<\/p>\n
was very liberal, beyond the requirement of law, in issuing<\/p>\n
instructions to the officers of the Grama Panchayat. But, the<\/p>\n
Government told that there cannot be any waiver of permit<\/p>\n
fee. We think, the Circulars issued by the Government, are<\/p>\n
W.P(C) No.13085\/09
\nand connected cases               – 13 –\n<\/p>\n
in fact, full of concessions granted to the builders, who are<\/p>\n
facing serious difficulties as a result of the enforcement of the<\/p>\n
Building Rules in the Panchayat area.         We feel that, they<\/p>\n
have no reason to demur against them.            Apparently, the<\/p>\n
above directions have been issued, invoking the power of the<\/p>\n
Government under Chapter XVIII of the Kerala Panchayat Raj<\/p>\n
Act. But, in the case of certain builders, who have exceeded<\/p>\n
the FAR beyond three, there is some grievance. But, that<\/p>\n
grievance cannot be a ground to interfere with the directions<\/p>\n
issued by the Government, most of which, we feel, are heavily<\/p>\n
in favour of the builders. Therefore, we are not inclined to<\/p>\n
interfere with the directions of the Government to the<\/p>\n
Panchayats to collect permit fee.          But, of   course, it is<\/p>\n
a matter for the Government to consider whether any relief<\/p>\n
can be granted to the petitioners. The learned counsel for the<\/p>\n
petitioners submitted that they have already moved the<\/p>\n
Government and the matter is within the seisin of the<\/p>\n
Government. If that be so, the petitioners can pursue the<\/p>\n
matter before the Government. Subject to the liberty given to<\/p>\n
W.P(C) No.13085\/09
\nand connected cases            – 14 –\n<\/p>\n
the petitioners to pursue their representations before the<\/p>\n
Government, the Writ Petition is dismissed.<\/p>\n
W.P.(C) Nos.35282\/07, 38032\/07, 38049\/07, 2241\/08,<\/p>\n
5222\/08, 5325\/08, 5326\/08, 5493\/08, 5522\/08, 5524\/08,<\/p>\n
5624\/08, 6330\/08, 6649\/08, 6650\/08, 7202\/09, 7274\/08,<\/p>\n
7375\/08, 7775\/08, 8388\/08, 8403\/08, 8751\/08, 8752\/08,<\/p>\n
12406\/08, 12541\/08, 13780\/08, 16993\/08,          17217\/08,<\/p>\n
17725\/08, 37432\/08, 8054\/09 and 10993\/09:-<\/p>\n
           The judgment in W.P.(C) No.13085 of 2009 will<\/p>\n
govern these writ petitions also.     Accordingly, these Writ<\/p>\n
Petitions are also dismissed.\n<\/p>\n<\/p>\n
                                               Sd\/-\n<\/p>\n
                                     K. Balakrishnan Nair,
\n                                            Judge.\n<\/p>\n
                                               Sd\/-\n<\/p>\n
                                        P. Bhavadasan,
\n                                            Judge.\n<\/p>\n
DK.\n<\/p>\n
                           (True copy)<\/p>\n","protected":false},"excerpt":{"rendered":"
Kerala High Court Mather Projects Pvt.Ltd vs Government Of Kerala on 25 November, 2009 IN THE HIGH COURT OF KERALA AT ERNAKULAM WP(C).No. 13085 of 2009(E) 1. MATHER PROJECTS PVT.LTD … Petitioner 2. NOOR MOHAMMED NOORISHA Vs 1. GOVERNMENT OF KERALA … Respondent 2. THRIKKAKARA GRAMA PANCHAYATH For Petitioner :SRI.V.V.ASOKAN For Respondent : No Appearance […]<\/p>\n","protected":false},"author":1,"featured_media":0,"comment_status":"open","ping_status":"open","sticky":false,"template":"","format":"standard","meta":{"_lmt_disableupdate":"","_lmt_disable":"","_jetpack_memberships_contains_paid_content":false,"footnotes":""},"categories":[8,21],"tags":[],"class_list":["post-212328","post","type-post","status-publish","format-standard","hentry","category-high-court","category-kerala-high-court"],"yoast_head":"\nMather Projects Pvt.Ltd vs Government Of Kerala on 25 November, 2009 - Free Judgements of Supreme Court & High Court | Legal India<\/title>\n<meta name=\"robots\" content=\"index, follow, max-snippet:-1, max-image-preview:large, max-video-preview:-1\" \/>\n<link rel=\"canonical\" href=\"https:\/\/www.legalindia.com\/judgments\/mather-projects-pvt-ltd-vs-government-of-kerala-on-25-november-2009\" \/>\n<meta property=\"og:locale\" content=\"en_US\" \/>\n<meta property=\"og:type\" content=\"article\" \/>\n<meta property=\"og:title\" content=\"Mather Projects Pvt.Ltd vs Government Of Kerala on 25 November, 2009 - 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