{"id":34634,"date":"2009-07-06T00:00:00","date_gmt":"2009-07-05T18:30:00","guid":{"rendered":"https:\/\/www.legalindia.com\/judgments\/rev-fr-mathew-narively-and-2-vs-state-of-kerala-and-others-on-6-july-2009"},"modified":"2017-11-04T18:51:09","modified_gmt":"2017-11-04T13:21:09","slug":"rev-fr-mathew-narively-and-2-vs-state-of-kerala-and-others-on-6-july-2009","status":"publish","type":"post","link":"https:\/\/www.legalindia.com\/judgments\/rev-fr-mathew-narively-and-2-vs-state-of-kerala-and-others-on-6-july-2009","title":{"rendered":"Rev. Fr. Mathew Narively And 2 &#8230; vs State Of Kerala And Others on 6 July, 2009"},"content":{"rendered":"<div class=\"docsource_main\">Kerala High Court<\/div>\n<div class=\"doc_title\">Rev. Fr. Mathew Narively And 2 &#8230; vs State Of Kerala And Others on 6 July, 2009<\/div>\n<pre>       \n\n  \n\n  \n\n \n \n  IN THE HIGH COURT OF KERALA AT ERNAKULAM\n\nWA.No. 650 of 2009()\n\n\n\n1. REV. FR. MATHEW NARIVELY AND 2 OTHERS\n                      ...  Petitioner\n\n                        Vs\n\n1. STATE OF KERALA AND OTHERS\n                       ...       Respondent\n\n                For Petitioner  :SRI.T.P.KELU NAMBIAR (SR.)\n\n                For Respondent  : No Appearance\n\nThe Hon'ble MR. Justice P.R.RAMAN\nThe Hon'ble MR. Justice P.BHAVADASAN\n\n Dated :06\/07\/2009\n\n O R D E R\n                   P.R. RAMAN &amp; P. BHAVADASAN, JJ.\n               - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - -\n                             W.A. No. 650 of 2009\n                  - - - - - - - - - - - - - - - - - - - - - - - - - - - - -\n                     Dated this the 6th day of July, 2009.\n\n                                      JUDGMENT\n<\/pre>\n<p>Bhavadasan, J,<\/p>\n<p>            This litigation is an offshoot of Ext.P3 order,<\/p>\n<p>whereby the State declared two churches situate side by side<\/p>\n<p>and a two storied building as protected monuments under the<\/p>\n<p>Kerala Ancient Monuments and Archaeological Sites and<\/p>\n<p>Remains Act, 1968 (hereinafter referred to as &#8220;the Act&#8221; for<\/p>\n<p>brevity).\n<\/p>\n<p>            2. The monuments are located in Ramapuram, a<\/p>\n<p>little known town in Kottayam District.                                    There are three<\/p>\n<p>structures involved. They are (1) St. Mary&#8217;s Church, (2) St.<\/p>\n<p>Augustine&#8217;s Church and (3) a two storied building in which<\/p>\n<p>Thoma Kathanar was residing in Ramapuram in Meenachil<\/p>\n<p>Taluk of Kottayam District.\n<\/p>\n<p>            3. It is believed that the first church was built in<\/p>\n<p>1450 A.D., which was dedicated to Virgin Mary and the<\/p>\n<p><span class=\"hidden_text\">WA. 650\/2009.                    2<\/span><\/p>\n<p>present small church was built in 1599 at the very same site where<\/p>\n<p>the old one was situated.      The main altar of the old church<\/p>\n<p>constructed in 1450 A.D with mural paintings in Indian style<\/p>\n<p>having preserved in sanctum of the present church and the same<\/p>\n<p>has been dedicated to the memory of St. Augustine. The new<\/p>\n<p>church constructed in 1864 is larger in size than the first church,<\/p>\n<p>but is an exact replica of the smaller one. They are situated in the<\/p>\n<p>heart of Ramapuram town.        These churches are the centre of<\/p>\n<p>attraction for a large number of pilgrims and visitors, both from<\/p>\n<p>inside and outside the State. We get a glimpse of the grandeur of<\/p>\n<p>the churches from the two reports available in the records. The<\/p>\n<p>structures appear to be very unique and exquisite. As further<\/p>\n<p>description of the churches may not be very relevant here, they are<\/p>\n<p>skipped.     It admits of no doubt that the churches and the two<\/p>\n<p>storied building       attract devotees, pilgrims and visitors.<\/p>\n<p>Considering the structure, the age and importance of the churches<\/p>\n<p><span class=\"hidden_text\">WA. 650\/2009.                      3<\/span><\/p>\n<p>and the building, and the need for preservation and protection of<\/p>\n<p>the same, the State felt that these structures must be brought within<\/p>\n<p>the ambit of the Act.\n<\/p>\n<p>           4. When the State formed such an opinion as envisaged<\/p>\n<p>under Section 4(1) of the Act, they have issued Ext.P1 notification,<\/p>\n<p>thus disclosing their intention to declare that the church and other<\/p>\n<p>building as    protected monuments. Petitioners and others filed<\/p>\n<p>their objections.  After considering the objections and hearing<\/p>\n<p>them, the State issued a notification under Section 4(3) of the Act<\/p>\n<p>declaring the ancient monuments to be protected monuments. The<\/p>\n<p>said notification was challenged in the writ petition.<\/p>\n<p>           5. In the writ petition, several grounds were taken.<\/p>\n<p>Among them, what were urged at the time of hearing appear to be<\/p>\n<p>(1) the formation of opinion as contemplated under Section 4(1)<\/p>\n<p>was not supported by any material, (2) Section 4(1) and (3) did not<\/p>\n<p>lay down any guidelines for exercising the power conferred with<\/p>\n<p><span class=\"hidden_text\">WA. 650\/2009.                     4<\/span><\/p>\n<p>the State and therefore they are unconstitutional.<\/p>\n<p>           6. The learned Single Judge found on a consideration<\/p>\n<p>of the various provisions of the Act that there are sufficient<\/p>\n<p>guidelines provided by the statute itself for formation of the<\/p>\n<p>opinion. The learned Single Judge referred to Section 2(a), (d), (g)<\/p>\n<p>and (k) read along with Section 4(1) and (3) and came to the<\/p>\n<p>conclusion that sufficient indication and criteria were given in the<\/p>\n<p>statute.  This criteria was sufficient for determining the issues<\/p>\n<p>involved and the Sections do not suffer from any vice. The learned<\/p>\n<p>Judge held that formation of the opinion on the basis of the<\/p>\n<p>materials available from the statute itself, which provides<\/p>\n<p>sufficient guidelines would satisfy the requirements of law.<\/p>\n<p>           7.   It is interesting to note that the learned Judge<\/p>\n<p>referred to the objections filed by the petitioners to Ext.P1<\/p>\n<p>notification and has extracted the statements which find a place in<\/p>\n<p>the objections numbered as items. 1 to 12, which would indicate<\/p>\n<p><span class=\"hidden_text\">WA. 650\/2009.                      5<\/span><\/p>\n<p>that the structures qualified to fall within the ambit of the Act.<\/p>\n<p>The learned Judge has also noticed that the petitioners         have<\/p>\n<p>admitted that the structures are more than 100 years old. Based on<\/p>\n<p>the above materials, the learned Judge repelled the contentions<\/p>\n<p>taken by the petitioners.\n<\/p>\n<p>            8. In this appeal, the challenge was made only on the<\/p>\n<p>following grounds:\n<\/p>\n<p>            (i) Principles of natural justice were violated.<\/p>\n<p>            (ii) There were absolutely no materials before the State<\/p>\n<p>for forming an opinion as envisaged under Section 4(1).<\/p>\n<p>            (iii)  Even if there were       materials, they were not<\/p>\n<p>disclosed to the petitioners and their explanation sought for, and<\/p>\n<p>            (iv)  Even if there were materials, based on which<\/p>\n<p>opinion was formed, they must find a place in the order itself. It is<\/p>\n<p>stated that the order must speak for itself.\n<\/p>\n<p><span class=\"hidden_text\">WA. 650\/2009.                     6<\/span><\/p>\n<p>           9.  In support of their contentions, learned counsel<\/p>\n<p>appearing for the appellants relied on the decisions reported in<\/p>\n<p><a href=\"\/doc\/1535971\/\">Bhikhubhai Vithlabhai Patel v. State of Gujarat<\/a> ((2008) 4 SCC<\/p>\n<p>144), <a href=\"\/doc\/336325\/\">Indian Nut Products v. Union of India<\/a> ((1994) 4 SCC 269)<\/p>\n<p>and <a href=\"\/doc\/859161\/\">Swadeshi Cotton Mills v. Union of India<\/a> ((1981) 1 SCC<\/p>\n<p>664).\n<\/p>\n<p>           10. Per contra, learned Government Pleader pointed out<\/p>\n<p>that a reading of the Act will show that it provides for guidelines<\/p>\n<p>based on which the State is to form an opinion as contemplated<\/p>\n<p>under Section 4(1). It provides for the procedure to be followed<\/p>\n<p>and then the final determination to be made under Section 4(3) of<\/p>\n<p>the Act. All that the authority concerned is to see whether the<\/p>\n<p>structure in question satisfies the definition contained in the Act.<\/p>\n<p>Section 4(1) of the Act provides for calling for objection when a<\/p>\n<p>particular structure is sought to be        declared as a protected<\/p>\n<p>monument. Section 4(3) provides for declaring the structure as a<\/p>\n<p><span class=\"hidden_text\">WA. 650\/2009.                     7<\/span><\/p>\n<p>protected monument after considering the objection. There is no<\/p>\n<p>dispute in this case that notice was given to the petitioners for<\/p>\n<p>filing their objections as contemplated under Section 4(1) of the<\/p>\n<p>Act. They filed their objections and they were heard also. The<\/p>\n<p>statute requires only to provide an opportunity to object and<\/p>\n<p>nothing more.     The formation of opinion and the subsequent<\/p>\n<p>declaration do not involve any quasi judicial or judicial function.<\/p>\n<p>A perusal of the records, according to the learned Government<\/p>\n<p>Pleader will clearly show that all necessary steps have been<\/p>\n<p>followed and there is no legal or factual illegality or irregularity in<\/p>\n<p>the proceedings.\n<\/p>\n<p>            11.  Before going into the rival contentions, some<\/p>\n<p>relevant aspects may be noticed. The Act was brought into force<\/p>\n<p>since the State felt the necessity and importance of preserving and<\/p>\n<p>protecting ancient monuments and archaeological sites. They are<\/p>\n<p>considered to be national treasures. The State consider as its duty<\/p>\n<p><span class=\"hidden_text\">WA. 650\/2009.                     8<\/span><\/p>\n<p>to properly maintain, protect and preserve them.<\/p>\n<p>           12.     The    Act defines     an ancient monument,<\/p>\n<p>archaeological sites, remains and monuments etc. Section 4 of the<\/p>\n<p>Act deals with the power of the Government to declare a particular<\/p>\n<p>structure as an ancient monument etc.         The procedure to be<\/p>\n<p>followed under Section 4 will be discussed later. Section 5 deals<\/p>\n<p>with the acquisition of rights in a protected monument. Section 6<\/p>\n<p>deals with matters relating to the preservation and protection of the<\/p>\n<p>monument. Sections 8 and 9 deal with the repair and maintenance<\/p>\n<p>of the monument. One must notice here that Section 5 infact<\/p>\n<p>reserves the right to use any protected monument for customary<\/p>\n<p>and religious observances. The Act also envisages an agreement to<\/p>\n<p>be entered into between the owner of the structures with the<\/p>\n<p>Government through the Director.\n<\/p>\n<p>           13. One of the grounds of attack is that there are no<\/p>\n<p>materials in the case whereby the State could have formed an<\/p>\n<p><span class=\"hidden_text\">WA. 650\/2009.                     9<\/span><\/p>\n<p>opinion that the structures are ancient monuments.          This is<\/p>\n<p>followed by the argument that if there were infact any materials<\/p>\n<p>before the State or the authority concerned, they ought to have<\/p>\n<p>been disclosed to the petitioners and their explanation sought for.<\/p>\n<p>It is further stated that the declaration issued under Section 4(3)<\/p>\n<p>does not mention the reasons for the declaration.<\/p>\n<p>            14. In the decision reported in <a href=\"\/doc\/1535971\/\">Bhikhubhai Vithlabhai<\/p>\n<p>Patel v. State of Gujarat<\/a> ((2008) 4 SCC 144) the words<\/p>\n<p>&#8220;consider&#8221; and &#8220;opinion&#8221; came up for consideration. It was held<\/p>\n<p>that formation of opinion though subjective must be based on<\/p>\n<p>materials and that formation of opinion must reflect an application<\/p>\n<p>of mind. It was held that the discretion conferred is not unfettered.<\/p>\n<p>It is also held that the word &#8220;consider&#8221; means active application of<\/p>\n<p>mind. It meant consideration of all relevant aspects.<\/p>\n<p>            15. In the decision reported in <a href=\"\/doc\/336325\/\">Indian Nut Products v.<\/p>\n<p>Union of India<\/a> ((1994) 4 SCC 269, it was held as follows:<\/p>\n<p><span class=\"hidden_text\">WA. 650\/2009.                     10<\/span><\/p>\n<blockquote><p>           &#8220;It is well-settled that if a statute requires an<\/p>\n<p>     authority to exercise power, when such authority is<\/p>\n<p>     satisfied that conditions exist for exercise of that power,<\/p>\n<p>     the satisfaction has to be based on the existence of<\/p>\n<p>     grounds mentioned in the statute. The grounds must be<\/p>\n<p>     made out on the basis of the relevant material. If the<\/p>\n<p>     existence of the conditions required for the exercise of<\/p>\n<p>     the power is challenged, the courts are entitled to<\/p>\n<p>     examine whether those conditions existed when the<\/p>\n<p>     order was made. A person aggrieved by such action can<\/p>\n<p>     question the satisfaction by showing that it was wholly<\/p>\n<p>     based on irrelevant grounds and hence amounted to no<\/p>\n<p>     satisfaction at all. In other words, the existence of the<\/p>\n<p>     circumstances in question is open to judicial review.&#8221;<\/p>\n<\/blockquote>\n<blockquote><p>           16. In the decision reported in <a href=\"\/doc\/859161\/\">Swadeshi Cotton Mills<\/p>\n<p>v. Union of India<\/a> ((1981) 1 SCC 664), the necessity to follow the<\/p>\n<p>principles of natural justice was emphasized.<\/p><\/blockquote>\n<p>           17. Here, one needs to notice the difference between an<\/p>\n<p>administrative and quasi judicial function. In the decision reported<\/p>\n<p><span class=\"hidden_text\">WA. 650\/2009.                    11<\/span><\/p>\n<p>in <a href=\"\/doc\/865102\/\">State of H.P. v. Raja Mahendra Pal<\/a> ((1999) 4 SCC 43), it was<\/p>\n<p>held as follows:\n<\/p>\n<blockquote><p>           &#8220;The submission that the Pricing Committee was a<\/p>\n<p>     quasi-judicial  tribunal   constituted    by   the    State<\/p>\n<p>     Government in exercise of its statutory as well as<\/p>\n<p>     plenary executive powers can also not be accepted in<\/p>\n<p>     the light of the functions assigned to the Committee.<\/p>\n<p>     Quasi-judicial acts are such acts which mandate an<\/p>\n<p>     office the duty of looking into certain facts not in a way<\/p>\n<p>     which it specifically directs but after a discretion, in its<\/p>\n<p>     nature judicial. The exercise of power by such tribunal<\/p>\n<p>     or authority contemplates the adjudication of rival<\/p>\n<p>     claims of the persons by an act of the mind or judgment<\/p>\n<p>     upon the proposed course of official action s to an<\/p>\n<p>     object of the corporate power, for the consequences of<\/p>\n<p>     which the official will not be liable, although his act<\/p>\n<p>     was not well judged.      A quasi-judicial function has<\/p>\n<p>     been termed to be one which stands midway a judicial<\/p>\n<p>     and an administrative function. The primary test is as<\/p>\n<p>     to whether the authority alleged to be a quasi-judicial<\/p>\n<p><span class=\"hidden_text\">WA. 650\/2009.                     12<\/span><\/p>\n<p>     one, has any express statutory duty to act judicially in<\/p>\n<p>     arriving at the decision in question. If the reply is in the<\/p>\n<p>     affirmative, the authority would be deemed to be quasi-<\/p>\n<p>     judicial, and if the reply is in the negative, it would not<\/p>\n<p>     be. The dictionary meaning of the word &#8220;quasi&#8221; is &#8220;not<\/p>\n<p>     exactly&#8221;.\n<\/p><\/blockquote>\n<blockquote><p>           It follows, therefore, that an authority is described<\/p>\n<p>     as quasi-judicial when it has some of the attributes or<\/p>\n<p>     trappings of judicial functions, but not all. This court in<\/p>\n<p>     <a href=\"\/doc\/1954356\/\">Province of Bomaby v. Khushaldas S. Advani<\/a> dealt<\/p>\n<p>     with the actions of the statutory body and laid down<\/p>\n<p>     tests for ascertaining whether the action taken by such a<\/p>\n<p>     body was a quasi-judicial act or an administrative act.<\/p>\n<p>     The Court approved the celebrated definition of the<\/p>\n<p>     quasi-judicial body given by Atkin, L.J., as he then was<\/p>\n<p>     in R.v. Electricity Commrs., in which it was held:<\/p>\n<\/blockquote>\n<blockquote><p>           &#8220;Whenever any body of persons having legal<\/p>\n<p>     authority to determine questions affecting rights of<\/p>\n<p>     subjections, and having the duty to act judicially act in<\/p>\n<p>     excess of their legal authority they are subject to the<\/p>\n<p>     controlling jurisdiction of the King&#8217;s Bench Division<\/p>\n<p><span class=\"hidden_text\">WA. 650\/2009.                    13<\/span><\/p>\n<p>     exercised in these writs.&#8221;\n<\/p><\/blockquote>\n<blockquote><p>     The aforesaid definition was accepted as correct in<\/p>\n<p>     R.v.London Country Council and many subsequent<\/p>\n<p>     cases both in England and in India. Again this court in<\/p>\n<p>     Radeshyam Khare v. State of M.P. Relying upon its<\/p>\n<p>     earlier decision held:\n<\/p><\/blockquote>\n<blockquote><p>           &#8220;It will be noticed that this definition insists on<\/p>\n<p>     three requisites each of which must be fulfilled in order<\/p>\n<p>     that the act of the body may be quasi-judicial act,<\/p>\n<p>     namely, that the body of persons (1) must have legal<\/p>\n<p>     authority, (2) to determine questions affecting the rights<\/p>\n<p>     of parties, and (3) must have the duty to act judicially.<\/p>\n<p>     Since a writ of certiorari can be issued only to correct<\/p>\n<p>     he errors of a court or a quasi-judicial body, it would<\/p>\n<p>     follow that the real and determining test for ascertaining<\/p>\n<p>     whether an act authorised by a statute is a quasi-judicial<\/p>\n<p>     act or an administrative act is whether the State has<\/p>\n<p>     expressly or impliedly imposed upon the statutory body<\/p>\n<p>     the duty to act judicially as required by the third<\/p>\n<p>     condition in the definition given by Atkin, L.J.<\/p>\n<\/blockquote>\n<blockquote><p>           *                     *                      *<\/p>\n<p><span class=\"hidden_text\">WA. 650\/2009.                    14<\/span><\/p>\n<p>           Relying on paras 114 and 115 of Halsbury&#8217;s Laws<\/p>\n<p>     of England, 3rd Edn., Vol. 11 at pp.55-58 and citing the<\/p>\n<p>     case of R.v.Manchester Legal Aid Committee learned<\/p>\n<p>     counsel for the appellants contends that where a statute<\/p>\n<p>     requires decision to be arrived at purely from the point<\/p>\n<p>     of view of policy of expediency the authority is under<\/p>\n<p>     no duty to act judicially. He urges that where, on the<\/p>\n<p>     other hand, the order has to be passed on evidence<\/p>\n<p>     either under an express provision of the statute or by<\/p>\n<p>     implication and determination of particular facts on<\/p>\n<p>     which its jurisdiction to exercise its power depends or if<\/p>\n<p>     there is a proposal and an opposition the authority is<\/p>\n<p>     under a duty to act judicially. As stated in para 115 of<\/p>\n<p>     Halbury&#8217;s Laws of England, vol.11 at57 the duty to act<\/p>\n<p>     judicially may arise in widely differing circumstances<\/p>\n<p>     which it would be impossible to attempt to define<\/p>\n<p>     exhaustively. The question whether or not there is a<\/p>\n<p>     duty to act judicially must be decided in each case in<\/p>\n<p>     the light of the circumstances of the particular case and<\/p>\n<p>     the construction of the particular statute with the<\/p>\n<p>     assistance of the general principles lid down in the<\/p>\n<p><span class=\"hidden_text\">WA. 650\/2009.                     15<\/span><\/p>\n<p>     judicial decisions. The principles deducible from the<\/p>\n<p>     various judicial decisions considered by this Court in<\/p>\n<p>     Khushaldas v. Advani at p.725 (of SCR): (at p.260 of<\/p>\n<p>     AIR) were thus formulated, namely &#8211;\n<\/p><\/blockquote>\n<blockquote><p>           (i) that if a statute empowers an authority, not<\/p>\n<p>     being a court in the ordinary sense, to decide disputes<\/p>\n<p>     arising out of a claim made by one party under the<\/p>\n<p>     statute which claim is opposed by another party and to<\/p>\n<p>     determine the respective rights of the contesting parties<\/p>\n<p>     who are opposed to each other, there is a lis and prima<\/p>\n<p>     facie and in the absence of anything in the statute to the<\/p>\n<p>     contrary it is the duty of the authority to act judicially<\/p>\n<p>     and the decision of the authority is a quasi judicial act;<\/p>\n<p>     and<\/p>\n<\/blockquote>\n<blockquote><p>           (ii) that if a statutory authority has power to do<\/p>\n<p>     any act which will prejudicially affect the subject, then,<\/p>\n<p>     although there are not two parties apart from the<\/p>\n<p>     authority and the contest is between the authority<\/p>\n<p>     proposing to do the act and the subject opposing it, the<\/p>\n<p>     final determination of the authority will yet be a quasi<\/p>\n<p>     judicial act provided the authority is required by the<\/p>\n<p><span class=\"hidden_text\">WA. 650\/2009.                    16<\/span><\/p>\n<p>     statute to act judicially.&#8221;\n<\/p><\/blockquote>\n<blockquote><p>     In the instant case the order appointing the Pricing<\/p>\n<p>     committee     which     was  amended   on   26.11.1986<\/p>\n<p>     specifically provided:\n<\/p><\/blockquote>\n<blockquote><p>           &#8220;The aforesaid Pricing Committee was established<\/p>\n<p>     to determine (not merely to advise on) the price and<\/p>\n<p>     terms and conditions for the supply of resin, resin<\/p>\n<p>     blazes, standing trees and other foreign produce to be<\/p>\n<p>     handed     over by the H.P. Forest Department to the<\/p>\n<p>     H.P.State Forest Corporation Ltd., from time to time.&#8221;<\/p>\n<p>     Applying the tests noticed hereinabove, it cannot be<\/p>\n<p>     said by any stretch of imagination that the said<\/p>\n<p>     Committee was or intended to be a quasi-judicial<\/p>\n<p>     tribunal as argued on behalf of respondent 1. This<\/p>\n<p>     Committee can also not be stated to have been<\/p>\n<p>     constituted in exercise of the plenary administrative<\/p>\n<p>     power of the appellant-State. It has been conceded<\/p>\n<p>     before us that the said Committee was not constituted in<\/p>\n<p>     terms of Section 6 of the Himachal Pradesh Forest<\/p>\n<p>     Produce (Regulation of Trade) Act, 1982. No other<\/p>\n<p>     statutory provision has been relied on either.     The<\/p>\n<p><span class=\"hidden_text\">WA. 650\/2009.                    17<\/span><\/p>\n<p>     Committee appears to have been constituted for<\/p>\n<p>     settlement of the claims and disputes between the<\/p>\n<p>     appellant-State and the respondent-Corporation. The<\/p>\n<p>     decisions of the Committee were applicable to the<\/p>\n<p>     parties to the said Committee and not to any third<\/p>\n<p>     person.    The said Committee had no source of its<\/p>\n<p>     constitution in any statute nor was it intended to<\/p>\n<p>     determine or adjudicate the claims of parties with<\/p>\n<p>     respect to the matters referred to it for opinion and<\/p>\n<p>     suggestion or even for settlement between the parties<\/p>\n<p>     concerned. The decision of the committee, not being<\/p>\n<p>     statutory, thus could not be given effect to by the High<\/p>\n<p>     Court.&#8221;\n<\/p><\/blockquote>\n<blockquote><p>           18. It will be useful to refer to the decision reported in<\/p>\n<p><a href=\"\/doc\/1158072\/\">Indian National Congress (I) v. Institute of Social Welfare<\/a><\/p>\n<p>(2002(2) KLT 548). Therein it was held that in order to qualify as<\/p>\n<p>a quasi judicial function, there must be a lis between two persons<\/p>\n<p>and it must be necessary to resolve the dispute based on their<\/p>\n<p>respective rights by an independent authority. Therefore, there<\/p>\n<p><span class=\"hidden_text\">WA. 650\/2009.                      18<\/span><\/p>\n<p>have to be two or more parties contesting each others claims and<\/p>\n<p>the statutory authority requires to adjudicate the rival claims<\/p>\n<p>between the parties.       When that exercise is undertaken, the<\/p>\n<p>function exercised by the authority is said to be quasi judicial in<\/p>\n<p>nature. What function is an administrative act or a quasi judicial<\/p>\n<p>act is, in the case of quasi judicial functions under the relevant law<\/p>\n<p>the statutory authorities required to act judiciously. In other words,<\/p>\n<p>where law requires that an authority before arriving at a decision<\/p>\n<p>must make an enquiry, such a requirement of law makes the<\/p>\n<p>authority a quasi judicial authority. In a quasi judicial function,<\/p>\n<p>there are some aspects of judicial function. In some cases, an<\/p>\n<p>administrative authority may determine a question of fact before<\/p>\n<p>arriving at a decision, which may affect the right of a person. But<\/p>\n<p>such a decision would not be a quasi judicial act.<\/p><\/blockquote>\n<p>            19. True, the distinction between administrative and<\/p>\n<p>quasi judicial function is very thin. In quasi judicial function the<\/p>\n<p><span class=\"hidden_text\">WA. 650\/2009.                      19<\/span><\/p>\n<p>adjudication of civil rights of a person is involved. The legal rights<\/p>\n<p>of persons are decided according to legal rules and prudence. But<\/p>\n<p>an administrative authority does not do so. It is true that a balance<\/p>\n<p>has to be struck between executive function and legal protection of<\/p>\n<p>right of the citizen.    Abuse of discretionary power should be<\/p>\n<p>checked.\n<\/p>\n<p>           20.   It is well settled that in judicial review of an<\/p>\n<p>administrative action, the court looks at the manner in which and<\/p>\n<p>the procedure followed in arriving at the decision. The court is not<\/p>\n<p>concerned with the decision as such, but the decision making<\/p>\n<p>process. The courts are not sitting as a court of appeal, but simply<\/p>\n<p>reviews the manner in which the decision was taken. It is accepted<\/p>\n<p>that the courts usually do not have the expertise to correct<\/p>\n<p>complicated and technical administrative decisions. The courts<\/p>\n<p>usually do not substitute its own decisions without the necessary<\/p>\n<p>expertise.   The intention is to check malafide, perverse and<\/p>\n<p><span class=\"hidden_text\">WA. 650\/2009.                      20<\/span><\/p>\n<p>arbitrary action. It is trite that judicial review is held to be an<\/p>\n<p>integral part of the constitution and its basic structure.<\/p>\n<p>           21. If the executive or administrative authority comes<\/p>\n<p>to a decision without any basis or it is unreasonable, so<\/p>\n<p>unreasonable as no persons would come to such a conclusion, the<\/p>\n<p>court will certainly interfere. Usually the interference is only when<\/p>\n<p>the decision is found to be unfair or unjust or so unreasonable that<\/p>\n<p>no reasonable man would have come to such a conclusion.<\/p>\n<p>           22. In such cases, usually Wednesbury test is applied.<\/p>\n<p>           23. While the powers must be exercised reasonably, it<\/p>\n<p>is no less important that the court must not overstep the limit.<\/p>\n<p>Merely because the court feels that another more reasonable<\/p>\n<p>conclusion could have been reached, by itself is not a ground to<\/p>\n<p>interfere with the administrative action. The test is to see whether<\/p>\n<p>the administrative authority&#8217;s decision is based on the relevant<\/p>\n<p>matters and the authority has eschewed the irrelevant matters. The<\/p>\n<p><span class=\"hidden_text\">WA. 650\/2009.                   21<\/span><\/p>\n<p>attempt would be to find out whether the decision making authority<\/p>\n<p>(i) exceeded its power, (ii)    committed an error of law (iii)<\/p>\n<p>committed breach of the rules of natural justice. (iv) whether<\/p>\n<p>relevant aspects have been omitted to be considered and irrelevant<\/p>\n<p>aspects have taken into consideration and whether the authority has<\/p>\n<p>exceeded or abused its powers. Wednesbury test means that the<\/p>\n<p>decision reached is so unreasonable that no reasonable man under<\/p>\n<p>the circumstances would have come to such a conclusion.<\/p>\n<p>           24. Bearing these principles in mind, an attempt shall<\/p>\n<p>now be made to see how far the principles apply to the facts of the<\/p>\n<p>present case.\n<\/p>\n<p>           25. Coming back to Section 4(1) of the Act, it says that<\/p>\n<p>if the Government are of the opinion that ancient monuments<\/p>\n<p>should be declared to be a protected monument, they may issue a<\/p>\n<p>notification. Two months notice should be given of their intention<\/p>\n<p>to declare such ancient monument as protected monument and that<\/p>\n<p><span class=\"hidden_text\">WA. 650\/2009.                    22<\/span><\/p>\n<p>the notification shall be affixed in a conspicuous place near the<\/p>\n<p>monument.     Section 4(2) enables any person interested in the<\/p>\n<p>matter, within two months after the issue of the notification, to<\/p>\n<p>object to the declaration.\n<\/p>\n<p>           26. One may here at once notice that the definition of<\/p>\n<p>ancient monument as contained in Section 2(a). One may also<\/p>\n<p>refer to Sections 2(d) and 2(k).      These provisions have been<\/p>\n<p>extracted in the judgment of the learned Single Judge and hence it<\/p>\n<p>is not necessary to extract them again.\n<\/p>\n<p>           27. Even going by the stand taken by the petitioners,<\/p>\n<p>they admit that the structures are more than 100 years old. The<\/p>\n<p>documents available with the department also show that structures<\/p>\n<p>are unique and of much significance and importance. The present<\/p>\n<p>state of affairs of these monuments are disclosed in the petition<\/p>\n<p>itself. It was applying the ingredients available in the Statute that<\/p>\n<p>the Government had formed the opinion about these structures.<\/p>\n<p><span class=\"hidden_text\">WA. 650\/2009.                    23<\/span><\/p>\n<p>There is nothing to show that the opinion so formed was arbitrary<\/p>\n<p>or fanciful. As already noticed, the Statute itself provides the<\/p>\n<p>necessary ingredients to be looked into and the elements to be<\/p>\n<p>taken into consideration. One need not therefore go in search of<\/p>\n<p>them outside the Act. One need not import anything else. In fact<\/p>\n<p>the very objection filed by the petitioners to the notice published<\/p>\n<p>under Section 4(1) of the Act would reveal that all the ingredients<\/p>\n<p>are satisfied. The main objection was that only the smaller church<\/p>\n<p>needs to be retained and the larger one needs to be demolished and<\/p>\n<p>a new church is to be put up. It is on the basis of the ingredients<\/p>\n<p>stipulated, as per the statute, which were found available in the<\/p>\n<p>case on hand, that the State had formed the opinion. By no stretch<\/p>\n<p>of imagination it could be said that the opinion so formed is<\/p>\n<p>without any basis or is unreasonable.\n<\/p>\n<p>            28. Coming next to the issues that the materials were<\/p>\n<p>not disclosed, there is absolutely no merit in the contention. The<\/p>\n<p><span class=\"hidden_text\">WA. 650\/2009.                     24<\/span><\/p>\n<p>nature of the structure, its importance, and its significance are<\/p>\n<p>matters on which there is no dispute and they are known to the<\/p>\n<p>petitioners. There are two reports in the records made available in<\/p>\n<p>the case. These reports show the necessity to carry on repairs<\/p>\n<p>under the supervision of the archaeological department. It makes<\/p>\n<p>mention of the damages caused to the structures and the necessity<\/p>\n<p>to protect the structures.   The statute only requires  notice of<\/p>\n<p>intention to declare such ancient monument to be protected<\/p>\n<p>monument and an opportunity to be given to persons to prefer their<\/p>\n<p>objections. No judicial or quasi judicial function in the sense<\/p>\n<p>affecting any religious right is involved. The only right is to file<\/p>\n<p>objections to the proposal for consideration before forming an<\/p>\n<p>opinion. The statute does not envisage a hearing of the persons,<\/p>\n<p>who have preferred their objection. It may not be feasible also.<\/p>\n<p>There may be innumerable number of objectors and it is not<\/p>\n<p>practical to hear them all. In the decision reported in Mohd.<\/p>\n<p><span class=\"hidden_text\">WA. 650\/2009.                     25<\/span><\/p>\n<p><a href=\"\/doc\/715788\/\">Ibrahim Khan v. State of M.P. (AIR<\/a> 1980 SC 517), it has been<\/p>\n<p>held that the mere fact that the persons are given their right to file<\/p>\n<p>their objection does not take within its ambit a right for hearing<\/p>\n<p>also. It is pointed out that in such cases there may be hundreds of<\/p>\n<p>objectors it is not feasible or practical to give hearing to all those<\/p>\n<p>persons. But in the instant case the objectors were heard. In such<\/p>\n<p>a circumstance, there is no merit in the contention that there is any<\/p>\n<p>violation of the principles of natural justice.<\/p>\n<p>            29. Coming to the contention based on non-mention of<\/p>\n<p>the reason in the decision arrived at by the authority concerned,<\/p>\n<p>that too is without much substance. As already mentioned, there<\/p>\n<p>are materials available in the records to show that the authority<\/p>\n<p>concerned has taken note of the relevant matters into consideration<\/p>\n<p>and especially the two reports of the two competent authorities of<\/p>\n<p>the archaeological department. Age of the church, its historical<\/p>\n<p>and its archaeological importance are matters on which there can<\/p>\n<p><span class=\"hidden_text\">WA. 650\/2009.                    26<\/span><\/p>\n<p>be no serious dispute.\n<\/p>\n<p>           30. In the decision reported in <a href=\"\/doc\/670018\/\">Income Tax Officer v.<\/p>\n<p>Biju Patnaik<\/a> (1991 (1) SCC 161), it was held that even though the<\/p>\n<p>order does not ex facie disclose satisfaction of the officer, if the<\/p>\n<p>records disclose the same, the order cannot be challenged on<\/p>\n<p>ground of non application of mind.\n<\/p>\n<p>           31. It is to be borne in mind that by the notification<\/p>\n<p>issued under Section 4(3) of the Act, the owner does not divest his<\/p>\n<p>ownership over the monument at all.         Certain restrictions are<\/p>\n<p>imposed on the use of the building, but maintenance and repairs<\/p>\n<p>are to be done by the State. True, one of the reports found in the<\/p>\n<p>records shows that the church authorities may be permitted to do<\/p>\n<p>repairs and maintenance.      But however, another report by a<\/p>\n<p>superior officer has highlighted the need to do the repairs under the<\/p>\n<p>supervision of the departmental authorities as the process involved<\/p>\n<p>is complicated and needs expertise and skill.\n<\/p>\n<p><span class=\"hidden_text\">WA. 650\/2009.                    27<\/span><\/p>\n<p>           32. The apprehension expressed by the owners of the<\/p>\n<p>monument is unfounded and misconceived. The State cannot put<\/p>\n<p>to use those monuments to any use they choose. The restriction<\/p>\n<p>imposed regarding the use of the building is only by way of<\/p>\n<p>caution to protect and preserve the structures. It is disturbing to<\/p>\n<p>note that such being the state of affairs, a section of the public is<\/p>\n<p>against the move. Destruction is easy. In fact, everyone should be<\/p>\n<p>anxious to see that such structures are protected and preserved by<\/p>\n<p>the State.\n<\/p>\n<p>           33. The presumption is that the statutory authorities are<\/p>\n<p>exercising their powers in accordance with law. The burden is on<\/p>\n<p>the person, who says otherwise to establish the said fact. In the<\/p>\n<p>case on hand, the learned Single Judge has considered these<\/p>\n<p>matters in detail and has come to the conclusion that there is no<\/p>\n<p>merit in any of the contentions taken by the petitioners.<\/p>\n<p>             There is nothing to show that the said finding suffers<\/p>\n<p><span class=\"hidden_text\">WA. 650\/2009.                   28<\/span><\/p>\n<p>from any legal or factual infirmities. The result is that this appeal<\/p>\n<p>is without merit and it is liable to be dismissed.       We do so,<\/p>\n<p>confirming the impugned judgment.\n<\/p>\n<\/p>\n<p>                                              P.R. Raman,<br \/>\n                                                   Judge<\/p>\n<p>                                              P. Bhavadasan,<br \/>\n                                                    Judge<\/p>\n<p>sb.<\/p>\n","protected":false},"excerpt":{"rendered":"<p>Kerala High Court Rev. Fr. Mathew Narively And 2 &#8230; vs State Of Kerala And Others on 6 July, 2009 IN THE HIGH COURT OF KERALA AT ERNAKULAM WA.No. 650 of 2009() 1. REV. FR. MATHEW NARIVELY AND 2 OTHERS &#8230; Petitioner Vs 1. STATE OF KERALA AND OTHERS &#8230; Respondent For Petitioner :SRI.T.P.KELU NAMBIAR [&hellip;]<\/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-34634","post","type-post","status-publish","format-standard","hentry","category-high-court","category-kerala-high-court"],"yoast_head":"<!-- This site is optimized with the Yoast SEO plugin v27.3 - https:\/\/yoast.com\/product\/yoast-seo-wordpress\/ -->\n<title>Rev. Fr. 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