Denial of permission to erect temporary booths/structures for holding religious function will not violate Article 25: Bombay HC

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*1* wadhwa-2.pil173.10.sxw

sewINTHEHIGHCOURTOFJUDICATUREATBOMBAY

CIVILAPPELLATEJURISDICTION

PUBLICINTERESTLITIGAIONNO.173OF2010ALONGWITH

CIVILAPPLICATIONNO.124OF2014

Dr.MaheshVijayBedekar. .. PetitionerVersus

TheStateofMaharashtra&Ora. .. Respondents

...........Mr. S. M.Gorwadkar, Senior Advocate, a/wMr.S.H. Gangal andMr.R.G.ShindeforthePetitioner.Mr.V.S.Gokhale,AGP,fortheRespondentNos.1(a)to1(d).Dr.SadhanaMahashabdefortheRespondentNo.1(e).Mr.R.S.Apte,SeniorAdvocate,i/b.Mr.N.R.BubnafortheRespondentNo.2.Mr.D.A.DubefortheRespondentNo.3(UnionofIndia).Ms.TruptiPuranikfortheRespondentNo.11.

...........

CORAM:A.S.OKAANDREVATIMOHITEDERE,JJ.

DATE:24thJUNE2015.

P.C.:

Adetailedadinterimorderwaspassedon13thMarch,2015

bythisCourtafterrecordingdetailedreasons.Theadinterimorderpassed

inthemainwritpetitionisinparagraph9ofthesaidjudgmentandorder

dated 13th March, 2015 and the interim order passed in the Civil

Applicationhasbeenincorporatedinparagraph35ofthesaidorder.The

saidorderintermsofparagraph9governstheexerciseofpowersunder

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Section 234 of the Maharashtra Municipal Corporations Act, 1949(for

shortthesaidActof1949)andSection317oftheMumbaiMunicipal

CorporationsAct,1888(forshortthesaidActof1888)

2] As far as interim order in Civil Application is concerned,

various directions were issued to the State Government. The said

directionswereissuedessentiallyforimplementationoftheprovisionsof

theNoisePollutionRulesandthevariousdirectionsissuedbytheApex

Courtfromtimetotimewhicharebindingonallconcernedincludingthe

State Government. It is not necessary for us to reproduce elaborate

interimdirectionscontainedinparagraph35ofthesaidorder.Clause(ii)

of paragraph 35 provides for creating appropriate grievance redress

mechanism for receiving complaints in accordance with the Noise

PollutionRules. Clause(iv)directstheStateGovernmenttonotifythe

namesandaddressesandallparticularsoftheauthoritiesundertheNoise

Pollution Rules and the Rules framed under the said Act of 1951.

Adequatepublicity wasorderedtobegiveninthemannerprovidedin

clause(iv).Clause(v)directstheStateGovernmenttosetupagrievance

redress mechanismwithin the limits of eachMunicipal Corporation in

termsofclause(ii)ofparagraph35withinaperiodoftwomonthsfrom

13th March, 2015. One of the directions was to ensure that modern

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equipment is provided to all concerned authorities to enable them to

ascertainthenoiselevel.

3] Today, an affidavit has been filed by Shri Sunil Jaikumar

Sovitkar,DeputySecretary,HomeDepartment,Mantralaya.Goingbywhat

isstatedinthesaidaffidavit,onlyinferencewhichcanbedrawnisthat

the State Government has completely failed to abide by any of the

directionsinthesaidorderandinparticulardirectionsinparagraph35of

theorder.AllthattheHomeMinistryhasdoneistowritealetterdated

18thJune,2015tothePrincipalSecretaryoftheRevenueDepartment,the

Principal Secretary of the Urban Development Department and the

PrincipalSecretaryofEnvironmentalDepartmentinvitingattentionofthe

respectiveSecretariestothedirectionsissuedbythisCourt. Thus,the

Home Ministry communicated the order dated 13th March, 2015 after

lapseoftwomonthstotheconcerneddepartments.Thedirectionsissued

bythisCourtwereforimplementationoftheRulesframedtopreventthe

NoisePollution.ThedirectionsweretoensurethattheordersoftheApex

Court are implemented. Weareconstrainedto observe that the State

Governmenthastakenthesaiddirectionsverycasually.Asstatedearlier,

the State Government has taken up more than two months only for

bringing the said directions to the notice of the Secretaries of the

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concerneddepartments.Thereisanoncompliancewithpracticallyevery

direction.Therefore,proceedingsundertheContemptofCourtAct,1971

will have to be initiated against the Government officers who are

responsible for committing the breachof this direction issuedby this

Court.WedirecttheofficeoftheGovernmentPleadertosupplyacopyof

theorderdated13thMarch, 2015andacopyofaffidavitofShriSunil

JaikumarSovitkartotheChiefSecretaryoftheStateGovernment. The

ChiefSecretaryoftheStateGovernmentshallascertainthenamesofthe

officerswhoareresponsibleforcommittingtheflagrantviolationofthe

directionsissuedbythisCourt.Withinaperiodoftwoweeksfromtoday,

anaffidavitshallbefiledbyhimsettingoutthenamesanddesignationsof

theofficerswhoareresponsibleforthebreachesoftheorderofthisCourt.

Aftersuchaffidavitisfiled,necessaryproceedingswillbeinitiatedunder

theContemptofCourtsAct,1971againsttheerringGovernmentOfficials.

4] Now,weturntotheadinterimreliefgrantedinthePIL.The

Paragraphs9and10oftheorderdated13thMarch,2015readthus:

9. Therefore,bywayofadinterimrelief,wedirectthatthe discretionarypowerunderthesection234tograntpermission toerecttemporaryboothsorsimilarstructuresonstreetson account of festivals shall be exercised by theCommissioners subjecttoaforesaidconstraintssetoutinparagraph8above. WealsodirecttheMunicipalCorporationstoframeapolicyfor dealingwithgrantofsuchpermissionsinthelightofwhatwe

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haveheldabove. Thepolicyshallbeframedintwomonths fromtoday.WealsodirecttheMunicipalCorporationstotake immediate action of demolition in respect of the temporary booths/platformsorsimilarstructureserectedonpublicstreets withoutobtainingtherequisitepermissionundersection234. Such action shall be taken before the religious festivals/functionsareover.Wealsodirectthatwheneversuch permissions are granted, a condition shall be incorporated therein of prominently displaying the particulars of such permissions on the temporary booths or similar structures coveredbysection234ofthesaidActof1949.

10. Several photographshavebeenannexedtothepetition showingthatforcelebrationofNavratriFestivals, important roads in the City of Thane were completely blocked. This affectsthefundamentalrightsofthecitizens. Thisalsoaffect trafficofemergencyvehiclesandambulancesplyingonpublic streetsapartfromthefactthatsuchactivitiesinvolvepublic nuisance covered by section 133 of the Criminal Procedure Code,1973(forshortCr.P.C.).Thereisnoreplyfiledbythe State Government on this aspect. We direct the State GovernmentandalltheMunicipalCorporationstofileareply evenon this aspect. Appropriate directions will have to be issuedonthisaspectafterreplyisfiled.

5] Thus, it was directed that the discretionary power under

section 234 of the said Act of 1949 of grant of permission to erect

temporary booths or similar structures shall be exercised by the

Commissionerssubjecttotheconstraintssetoutinparagraph8ofthesaid

order.Theparagraph8ofthesaidorderreadsthus:

8. TheSection234does notconfer absolute power. The power conferred on the Commissioner is discretionary. The power cannot be exercised without the concurrence of the CommissionerofPoliceortheSuperintendentofPolice,asthe

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casemaybe.Theexerciseofpowerwithouttheirconcurrence willbebadinlaw.Itisobviousthatapermissionunderthe provision cannot be granted if the temporary erection of boothsorsimilarstructuresislikelytoaffectfreemovement of vehicular traffic. Permission to erect booths on the footpathsorfootwaycannotbegrantedifthesameislikely to obstruct free movement of the pedestrians. It is obvious that the discretion cannot be exercised by granting permissionstoerectboothsorlikestructuresonaverybusy public streets havinga largevehicular traffic. It cannotbe exercisedinrelationtofootpathsinlocalitieshavingalarge populationandinrespectoffootpathsinthelocalitieswhich areverycrowded.Thepowercannotbeusedinrelationto publicstreetsincludingfootpathsorfootwaysnearRailway stations/publicbusstands/majorautorickshawortaxistands.It followsthatsuchpermissionscannotbegrantedifthegrantof such permissions is likely to result into a major traffic congestionorislikelytocause obstructiontolargenumberof pedestriansintheuseoffootway.Suchpermissionscannotbegranted on streets or foot ways in the vicinity of major hospitalsandeducationalinstitutions.Thesecasesaresetout onlybywayofillustrations.Thisisnottheexhaustivelistof footpathsandstreets inrelationtowhichthediscretionary powershouldnotbeexercised.Whileexercisingthediscretion underthesaidsection,the CommissioneroftheMunicipal Corporationsshallconsiderallsuchrelevantfactors.

6] WhatisheldbythisCourtisthatthepowervestinginthe

MunicipalCommissionerbothunderthesaidActof1949andthesaidAct

of1888tograntpermissionfortemporaryerectionofboothsorsimilar

structurescannotbeexercisediftheconstructionofbooths/structureson

thestreetsoronfootpaths/footwaysislikelytoobstructfreemovement

oftrafficorfreemovementofpedestrians.

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7] ThisCourtbyJudgmentandorderdated20thMay,2015in

SuoMotuPILNo.71of2013heldthus:

9. Aspointedoutearlier,bythejudgmentandorderdated31stAugust,2006thisCourthasalreadyheldthattherighttohaveroadsinreasonableconditionisapartofthefundamentalrightguaranteedunderArticle21oftheConstitutionofIndia. Thus,theDivisionBenchhasplacedtherightofcitizenstohavepotholefreeroadsinreasonable condition on the highest pedestal offundamentalrightsunderArticle21oftheConstitutionofIndia. Existence of such fundamental right createscorrespondingobligationinalltheauthoritieswhichareState within the meaning of Article 12 of theConstitution of India. For the infringement of thefundamental right guaranteed under Article 21 of theConstitutionofIndia,acitizencandemandcompensationapart from seeking the enforcement of the right.Moreover, a citizen has a right to make grievancesregarding the violation of such right and get thegrievancesredressed.

(underlinesupplied)

Thus, this Court has held that a right to have streets in a reasonable

conditionisafundamentalrightofthecitizens.ThisCourthasheldthat

thedefinitionofstreetsundertheMunicipalLawsincludesfootpathsor

footways. Thus,thisCourthasheldthattherighttohaveroadsand

footpathsorfootwaysinareasonableconditionisafundamentalright.It

isapartofArticle21oftheConstitutionofIndia.Itisobviousthatwhile

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exercisingpowerunderSection234ofthesaidActof1949andSection

317ofthesaidActof1888,theMunicipalCommissionersshallbebound

ensurethatthisfundamentalrightavailabletothecitizensisnotviolated.

TheCommissionersareboundtoconsiderthefactthattheroadsexistfor

vehiculartrafficandthefootpathsaremeantfortheuseofpedestrians.

8] Thereisanotheraspectofthematter.ThisCourthasalreadynoted

in order dated 13th March, 2015 that temporary booths or similar

structuresareerectedonroadsandfootpathsmainlyforcelebrationof

Ganpati,Navratriandotherreligiousfestivals.ThisCourtisconsciousof

thefundamentalrightsconferredbyArticle25oftheConstitutionofIndia

oneverycitizen.However,thescopeoftherightsconferredbyArticle25

hasbeenexplainedbytheConstitutionBenchoftheApexCourtinthe

caseof Dr.M.Ismail Faruquietc.V/s. Unionof India 1 Itwill be

necessarytomakeareferencetowhatisheldinparagraph80and81of

thesaiddecisionwhichreadthus:

80. ItmaybenoticedthatArticle25doesnotcontainany referencetopropertyunlikeArticle26oftheConstitution.The right to practice, profess andpropagate religionguaranteed under Article 25of theConstitutionof does not necessarily include the right to acquire or own or possess property. Similarlythisrightdoesnotextendtotherightofworshipat anyeveryplaceofworshipsothatanyhindrancetoworshipat aparticularplacepersemayinfringethereligious freedom

1 AIR 1995 SC 605

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guaranteedunderArticles25and26oftheConstitution.The protectionunderArticles25and26oftheConstitutionisto religiouspracticewhichformsanessentialandintegralpartof thereligion.Apracticemaybeareligiouspracticebutnotan essentialandintegralpartofpracticeofthatreligion.

81. Whileofferofprayerorworshipisareligious practice, itsofferingateverylocationwheresuchprayerscanbeoffered wouldnot be anessential or integral part of suchreligious practiceunlesstheplacehasaparticularsignificanceforthat religion so as to forman essential or integral part thereof.Placesofworshipofanyreligionhavingparticularsignificance forthatreligion,tomakeitanessentialorintegralpartofthe religion,standonadifferentfootingandhavetobetreated differentlyandmorereverentially.

(underlinessupplied)

9] WhatisheldbyApexCourtcanbesummarizedasunder:

(a) Therightto practice,professandpropagatereligion

guaranteedunderArticle25oftheConstitutiondoes

not extend to worship at every and any place of

worship. The protection under Article 25 of the

Constitutionistoreligious practicewhichformsan

essentialandintegralpartofareligion;and

(b) The offer of prayer or worship may be a religious

practicebutitsofferingateverylocationwheresuch

worshipcanbemadeisnotanessentialandintegral

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part of religion unless the particular place has a

particularsignificanceforthatreligionsoastoform

anessentialandintegralpartofthatreligion.

10] Therefore,theMunicipalCommissionerswhileexercisingthe

powerunderSection317ofthesaidActof1888andSection234ofthe

saidActof1949,inadditiontotheconstraintswhichareincorporatedin

paragraph8oftheorderdated13thMarch,2015willhavetoensurethat

the right of citizens to have roads and footpaths or footways in a

reasonable condition is not violated. Wemay reiterate here that the

denialofpermissiontoerecttemporaryboothsoranyotherstructurefora

temporaryperiodonpublicstreetsorfootpathsorfootwaysforholding

anyreligiousfunctionorreligiousfestivalofallreligionswillnotamount

totheinfringementofthefundamentalrightsguaranteedunderArticle25

oftheConstitutionofIndiaunlessitisshownthatthestreetorfootpathin

questionhasaparticularsignificanceforthatreligionsoastoforman

essentialandintegralpartthereof.

11] Unfortunately, none of the Municipal Corporations have

chosentocomplywithdirectionsissuedundertheorderdated13 thMarch,

2015 by framing a policy. At this stage, the learned Senior Counsel

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representingtheMunicipalCorporationoftheCityofThanehasplacedon

record a copy of the order dated 17th August, 2011 passed by the

CommissionerofthesaidMunicipalCorporationlayingdownthepolicy

forexerciseofpowersunderSection234.Clause(2)ofthepolicyshows

thattheMunicipalCommissionerisunderanimpressionthatifthebooths

orstructuresdonotcovermorethan1/3rdwidthoftheroad,itwillnot

causeanyobstructiontothetraffic.Thesaidapproachiserroneous.The

policyincorporatedinthesaidorderisnotconsistentwiththeadinterim

orderdated13thMarch2015.

12] Atthisstage,thelearnedSeniorCounselappearingforthe

petitionerhastenderedacopyofareportdated24thJune,2015prepared

byAwaazFoundation,anenvironmentalNGOspecializinginantinoise

pollution. ItispointedoutthatthesaidNGOhasmeasurednoiselevels

duringreligiousfestivalseveryyearsince2003.Itispointedoutthatthe

secondhighestdecibel levelswerefromtruckscarryinggeneratorsand

wallofloudspeakersplayingmusicduringGanpati,IdeMiladandMahim

Fair. It is statedthatnoisepollutionfrombrass instruments including

cymbals(tasha)withoutamplificationreachesa level of 121.4dBand

emitaveryshrilldisturbingsound.Thenoisepollutionfromlargeplastic

membranedrumsandbanjosamplifiedwithloudspeakersreacheslevelof

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125db.Itisstatedthatsingleandserialfirecrackersusedinprocessions

measure up to 125db. Along with the said report, a report onnoise

pollutionlevelsduringIdeMiladon4thJanuary,2015aswellasareport

onnoisepollutionlevelsinMumbaion10thdayofGanpatifestivalof2014

havebeenenclosed.Detailsofthenoisepollutionlevelsonotherreligious

festivalssuchasMahimFairetc.arealsoproduced.Thesereportsshow

alarmingsituation.Copiesofthesaidreportshavebeensuppliedbythe

learnedSeniorCounselappearingforthepetitionertoalltheconcerned

respondentsincludinglearnedAGP.Inthecontextofwhatisstatedinthe

saidreport,thecompletefailureoftheStateGovernmenttocomplywith

thedirectionsofthisCourtbecomesveryserious.

13] WedirectthelearnedAGPtoprovidecopiesofthereportsto

theChiefSecretaryoftheStateGovernmentalongwiththecopiesofthe

orderandaffidavitasdirectedabove. Thereportswillhavetobedealt

withatthetimeofnexthearing.

14] Oneissueisregardingthegrantofpermissionsinexerciseof

the statutory powers. The other issue is regarding the temporary

booths/structures erected for religious festivals without obtaining the

permissionoftheCommissioner.Allconcernedwillhavetoensurethatno

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suchtemporarybooths/structuresareerectedwithoutobtainingavalid

permissionoftheMunicipalCommissioner.Hence,weproposetodirect

theDistrictCollectorstoconstituteateamofRevenueofficersnotbelow

therankof Tahsildarstovisit all theconcernedMunicipal Corporation

areasduringtheperiodof7dayspriortoallmajorreligiousfestivalsand

during the period of major religious festivals with a viewto ascertain

whetheranysuchtemporarybooths/structureshavebeenerectedwithout

permissionoftheMunicipalCommissioner.Themembersoftheteamso

appointed by the Collectors shall report directly to the concerned

Municipal Commissioner about any such illegal erection of temporary

booths/structurestoenabletheMunicipalCommissionertotakeactionof

removal immediately. It is obvious that while grantingpermission for

erection of temporary booths/structures, a condition will have to be

incorporatedofprominentlydisplayingacopyofthepermissionaswellas

theparticularsofthepermissiononthetemporaryboothserectedonthe

basisofthepermissions.

15] Hence,forthereasonsrecordedinthisorderandthereasons

recorded in the order dated 13th March 2015, we pass the following

order:

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(i) Theadinterimreliefgrantedintermsofparagraph9of

the order dated 13th March, 2015 shall continue to

operate with further modifications and clarifications

madebythisorder;

(ii) Wedirectthatthediscretionarypowersunderthesection

234ofthesaidActof1949andSection317ofthesaid

Act of 1888 to grant permission to erect temporary

booths or similar structures onpublic streets(including

footpaths/footways)forholdingoffestivals/ceremonies

shall be exercised by the Commissioners subject to

aforesaidconstraintssetoutinparagraph8oftheorder

dated 13th March 2015 which we have reproduced in

paragraph 5 above. We also direct the Municipal

Commissionerstoframeapolicyfordealingwithgrantof

suchpermissionsinthelightofwhatwehaveheldinthis

orderandtheorderdated13thMarch2015. Thepolicy

shall be framedwithin a period six weeks fromtoday

whichshallbeplacedonrecordalongwithanaffidavit.

We also direct the Municipal Corporations to take

immediate action of demolition in respect of the

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temporary booths/ structures erected on public streets

withoutobtainingtherequisitepermissions.Suchaction

shallbetakenbeforethereligiousfestivals/functionsare

concluded. We also direct that whenever such

permissions are granted, a condition shall be

incorporatedthereinofprominentlydisplayingacopyof

permission and the material particulars of such

permission on the temporary booths or structures

covered by section 234 of the said Act of 1949 and

Section317ofthesaidActof1888.

(iii) While exercising the power under section 234of the

said Act of 1949andSection 317of the said Act of

1888,theCommissionersoftheMunicipalCorporations

shallbeboundtoensurethatthefundamentalrightof

citizenstohaveroadsandfootpathsand/or footways

inareasonableconditionwhichisguaranteedbyArticle

21oftheConstitutionisnotviolated;

(iv) While exercisingpower, the commissioners shall have

dueregardto thelawlaiddownbytheApexCourtin

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paragraph80and81inthecaseofDr.M.IsmailFaruqui

etc. V/s. Union of India which holds that the

fundamentalrightguaranteedunderArticle25doesnot

extendto worshipatanyandeveryplaceunlessthe

placehasaparticularsignificanceforthatreligionsoas

toformessentialandintegralpartofreligion;

(v) WedirecttheDistrictCollectorsofalltheDistrictsinthe

StatetoconstituteateamofRevenueOfficersnotbelow

therankofTahshildarsforeachCorporationarea.The

membersof theteamshall visit theareaswithin the

limits of the Municipal Corporation periodically for a

periodof7daysbeforethedateofcommencementof

themajorreligiousfestivalsandduringthefestivalsto

ascertainwhetheranytemporarybooths/structureshave

beenerectedonpublicstreetsandfootpaths/footways

without obtaining permission of the Municipal

Commissioners. Any such structure which does not

displaythepermissionandmaterialdetailsthereofshall

bedeemedtobeillegal.Themembersoftheteamshall

under an obligation to bring to the notice of the

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MunicipalCommissioners,thetemporaryboothserected

onstreetsandfootpathsorfootwayswithoutobtaining

permission of the Commissioners. The Municipal

Commissionersshallforthwithtakeactionofremovalon

thebasisofsuchinformation;

(vi) If any such illegal activities involve public nuisance

covered by section 133 of the Code of Criminal

Procedure, 1973, necessary action shall be taken in

accordancewithlawbyalltheconcernedauthorities;

(vii) Wemakeitclearthatthisorderaswellastheearlier

order shall apply to festivals/ceremonies of all the

religions;

(viii)WedirecttheStateGovernmenttoissuedirectionstoall

theDistrictCollectorsandMunicipalCorporationsinthe

lightofthelawlaiddownbythisCourtinthisorder.

Complianceshallbemadewithinaperiodofonemonth

fromtoday;

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(ix) In the event, the Municipal Commissioners or the

MunicipalStafforthemembersoftheteamconstituted

bytheCollectorsneedpolicehelpandprotectionforthe

implementationofthisorderortheimplementationof

theprovisionsoflaw,onanapplicationbeingmadeby

them,allconcernedlocalpolicestationshallforthwith

provideadequatepoliceprotectiontothem;

(x) TheCivil ApplicationNo.124/2014shall beplacedon

boardon3rdJuly,2015.Onthatday,appropriateorder

shall bepassed in the lightof affidavit whichwill be

filedbytheChiefSecretaryoftheState.Interimorders

passedthereonshallcontinuetillfurtherorders;

(xi) ThoughnoneoftheMunicipalCorporationshavefiled

affidavits in terms of the earlier order, by way of

indulgence,wegranttimetoMunicipalCorporationsto

fileaffidavitstill2ndJuly,2015.

(REVATIMOHITEDERE,J.) (A.S.OKA,J.)

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Documents

Denial of permission to erect temporary booths/structures for holding religious function will not violate Article 25: Bombay HC