Citation : 2023 Latest Caselaw 4918 Bom
Judgement Date : 5 June, 2023
2023:BHC-AS:14608
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IN THE HIGH COURT OF JUDICATURE AT BOMBAY
APPELLATE SIDE CIVIL JURISDICTION
WRIT PETITION NO.9457 OF 2018
Balaso Mhadgonda Patil
(Since deceased through Legal Heirs)
1. Shantabai Balasaheb Patil
2. Annaso Balaso Patil
(Since deceased through Legal Heirs)
2A. Annapurna Annaso Patil
2B. Shivaji Annaso Patil
2C. Vaibhavi Annaso Patil
2D. Abhiraj Annaso Patil
3. Santosh Balaso Patil
4. Rajashree Anand Adke
5. Rajashree Nanasaheb Khot-Desai
6. Vijayshree Sanjay Desai
7. Bhagyashree Sadashiv Patil ...Petitioners
verses
1. Hirabai Malgoanda Patil
2. Ratnabai Malgonda Patil
3. Shobha Rajendra Walwekar
4. Shantinath Kallappa Magdum
5. Malutai Annaso Chougule
6. Ashok Appaso Badbade
7. Sarojini Jakkanna Badbade
(Since deceased through Legal Heirs)
7A. Jakkanna Dhulappa Badabade
7B. Jayashree Jakkanna Badabade
7C. Jayveer Dhullappa Badabade
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8. Nanda (Kunda) Mahaveer Badabade
9. Kalgonda Malgonda Patil
(Since deceased through Legal Heirs)
9A. Sunanda Kalgonda Patil
9B. Shruti Kalgonda Patil ...Respondents
Mr. Pramod Arjunwadkar, for the Petitioners.
Mr. Manoj Patil, for the Respondent Nos. 2 to 8.
CORAM : N. J. JAMADAR, J.
RESERVED ON : APRIL 10, 2023
PRONOUNCED ON : JUNE 5, 2023
JUDGMENT :
1. Rule. Rule made returnable forthwith. With the consent of the
learned counsel for the parties, heard finally at the stage of
admission.
2. The legality, propriety and correctness of the order dated 7 th
June, 2016 passed by the Principal Secretary and Officer on Special
Duty (Appeals) Revenue and Forest Department condoning the
delay in filing Review Application and the subsequent order dated
8th August, 2016 allowing the said review by setting aside his own
order dated 26th August, 2014 passed in Second Revision
Application No. R.T.A.3813/PK55/ J-5A/PK634/(02)/2014.AVP and
affirming the order 30th June, 2005 passed by the Additional
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Divisional Commissioner, Pune in RTS First Revision Application
No. RTS/KOP/395/2003, are assailed in this petition.
3. The litigation has a checkered history yet the background
facts necessary for the determination of this petition can be
summarized as under:
a} Anna Appa Patil, was the father of Mhadgonda Patil, the
predecessor in title of the petitioners and Malgonda, the
predecessor in title of respondent Nos. 1 to 3. After the demise of
Anna, the joint Hindu Family comprising Mhadgonda and Malgonda
was holding a number of joint family properties including the
agricultural lands bearing Survey No.93, Gut No. 380 (New Gut No.
700) and Gut No. 474 situated at Mouje Abdul Lat, Tal. Shirol, Dist.
Kolhapur (the subject lands), on tenancy.
b} The subject lands were owned by Jahagirdar of Ichalkarnji
and Keshav Gadre, respectively. After the demise of Anna,
proceedings were initiated and purchase price came to be fixed
under section 32G of the the Maharashtra Tenancy and
Agricultural Act, 1948 (the Act, 1948). Since Malgonda, according
to the petitioners, was the manager of the joint family, the subject
lands were purchased in the name of Malgonda out of the joint
family income. However, the subject lands continued to be joint
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family properties.
c} The petitioners claimed on 30th August, 1972 Malgonda
surreptitiously gave an intimation (vardi) to the revenue
authorities and the name of his son Kalgonda came to be mutated to
the record of right of the subject land, without notice to
Mahadgonda. The mutation entry No. 5504 came to be certified on
12th November, 1972.
d} A spate of proceedings ensued: (i) Mahadgonda preferred an appeal before the Sub Divisional
Officer, Kolhapur. By judgment and order dated 20 th February, 1979
in RTS First Appeal No. 98 of 1977, the SDO was persuaded to allow
the appeal and cancel M.E.No.5504. It was, inter alia, held that the
mutation was effected and certified on one and the same day while
an appeal preferred against the order issuing certificate under
section 32G was still subjudice.
(ii) Second RTS Appeal No. 12 of 1979 preferred by the
respondent Nos. 2 and 3, who claimed to be the wife and daughter of
Malgonda, and Kalgonda Patil, against the aforesaid order came to
be dismissed by the Additional Collector, Kolhapur by an order
dated 30th August, 2001.
(iii) Being aggrieved, respondent Nos. 1 to 3 preferred First
Revision through their Power of Attorney holder Shantilal Badbade
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before the Divisional Commissioner, Pune. By judgment and order
dated 30th June, 2005 the Divisional Commissioner was persuaded
to allow the Revision Application and set aside the order passed by
the Additional Collector in RTS Appeal No. 39 of 1979 dated 30 th
August, 2001. The Additional Divisional Commissioner was of the
view that in the intervening period a suit instituted by Mahadgonda
and successors in interest, being Partition Suit No. 24 of 1976, came
to be decided against Mahadgonda. The rights of the parties were
adjudicated by the Civil Court and, thus, there was no reason to
cancel the M.E.No.5504.
(iv) Being aggrieved, the petitioners preferred Second Revision
Application before the State Government. Initially by a judgment
and order dated 26th August, 2014 in Second Revision Application
No. R.T.A.3813/PK55/J-5A/PK634/(02)/2014.AVP, the Secretary
and Officer on Special Duty (Appeals) was persuaded to allow the
Revision Application and set aside the aforesaid order passed by the
Additional Divisional Commissioner in First Revision Application
No. RTS/KOP/395/2003. It was, inter alia, held that the name of
Kalgonda was mutated to the subject land vide ME. No.5504 in the
absence of any instrument and the subject land being governed by
the provisions of the Act, 1948 was transferred of in violation of the
provisions contained in section 43 thereof and thus the said
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mutation was invalid.
(v) The respondent Nos. 1 to 8 herein preferred a Review
Application before the State Government seeking review of the
aforesaid order dated 26th August, 2014, inter alia, on the ground
that the respondent Nos. 1 to 3 were not provided an effective
opportunity of hearing as they were not impleaded through the POA
Shantilal Badbade through whom the respondent Nos. 1 to 3 had
prosecuted the First Revision Application before the Divisional
Commissioner, Pune and, therefore, they could not appear before
the State Government. It was further contended that the relevant
documents which were germane to the determination of the
controversy between the parties were also not brought to the notice
of the revisional authority.
e} Initially, by an order dated 7th June, 2016 the Principal
Secretary and OSD allowed the application for condonation of delay
in taking out the Review Application opining that the order was
passed in Second Revision Application No. R.T.A.3813/PK55/ J-5A/
PK634/(02)/2014.AVP dated 26th August, 2014 without providing
an opportunity of hearing to respondent Nos. 1 to 3.
f} Subsequently, by the impugned order the Principal Secretary
was persuaded to allow the review itself holding that the
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respondent Nos. 1 to 3 were not provided an effective opportunity
of hearing as the petitioners had not impleaded the POA through
whom the respondent Nos. 1 to 3 were prosecuting the proceedings
and therefore they could not appear before the Court when the
Second Revision Application was initially decided by order dated
26th August, 2014.
4. Being thus aggrieved, the petitioners have invoked the writ
jurisdiction of this Court.
5. I have heard Mr. Pramod Arjunwadkar, learned counsel for
the petitioners, and Mr. Manoj Patil, learned counsel for the
Respondent Nos. 2 to 8 at some length. With the assistance of the
learned counsel for the parties, I have also perused the material on
record including the orders passed by the authorities below and the
Civil Courts which were tendered on behalf of the parties.
6. Mr. Arjunwadkar, learned counsel for the petitioners would
submit that the Principal Secretary and OSD committed a grave
error in exercising the writ jurisdiction when no case for review
was made out even remotely. Firstly, the Review Application was
preferred by few of the persons who were not the parties to the
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proceedings before the Divisional Commissioner, Pune. Secondly,
the second Revisional Authority was not at all justified in setting
aside its earlier order straightaway. If the second Revisional
Authority considered it appropriate to review its order dated 26 th
April, 2014 it ought to have proceeded to hear the matter afresh
after recording a finding that it was persuaded to consider the
prayer for review. Instead, the second Revisional Authority
proceeded to set aside its earlier order and restore the order passed
by the Divisional Commissioner by one and the same order. Thirdly,
during the course of hearing of the Review Petition, the respondent
Nos. 1 to 8, the applicants in Review Application for the first time
tendered certain documents. Those documents were within the full
knowledge of the applicants therein. At the stage of review, the
Principal Secretary could not have looked into those documents and
the proper course would have been to remit the matter to the
Additional Commissioner for a fresh determination.
7. Mr. Arjunwadkar, strenuously submitted that, in effect, the
revisional authority under the garb of review has exercised
appellate jurisdiction. Such a course of action is legally
impermissible. Mr. Arjunwadkar further submitted that, at any
rate, the decision to review the earlier judgment in Revision
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Application dated 26th April, 2014 and pass an order in review by
setting aside the earlier order, passed by the very same authority,
could not have been made by one and the same order.
8. Mr. Manoj Patil, the learned counsel for the respondent Nos. 2
to 8 submitted that there is no error in the impugned order which
warrants exercise of extraordinary writ jurisdiction. Mr. Patil
strenuously submitted that the order condoning the delay dated 7 th
June, 2016 cannot be assailed in this petition as it was never
challenged and thus attained finality. Laying emphasis on the fact
that the Second Revision Application came to be decided on 26 th
August, 2014 without providing an opportunity of hearing in as
much as the respondent Nos. 1 to 3 were not impleaded through the
POA, though the First Revision was preferred by respondent Nos. 1
to 3 through the POA, it was submitted that the first order was non
est in the eyes of law as no effective opportunity was provided.
Thus the Principal Secretary and OSD was within his rights in
reviewing the order once it was found that the first order was
passed without adequate notice to respondent Nos. 1 to 3 and
consideration of the relevant material. In any event, according to
Mr. Patil, the claim of the petitioners that their predecessor had
interest in the subject land has been negatived by the Civil Court. In
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the face of such record, according to Mr. Patil, the petitioners
cannot be permitted to re-agitate the issue of the alleged incorrect
mutation.
9. Section 258 of the Maharashtra Land Revenue Code, 1966
reads as under:-
258. Review of orders:-
(1) The State Government and every revenue or survey officer may, either on its or his own motion or on the application of any party interested, review any order passed by itself or himself or any of its or his predecessors in office and pass such orders in reference thereto as it or he thinks fit :
Provided that -
(i) if the Collector or Settlement Officer thinks it necessary to review any order which he has not himself passed, on the ground other than that of clerical mistake, he shall first obtain the sanction of the Commissioner or the Settlement Commissioner, as the case may be, and if an officer subordinate to a Collector or Settlement Officer proposes to review any order on the ground other than that of clerical mistake, whether such order is passed by himself or his predecessor, he shall first obtain the sanction of the authority to whom he is immediately subordinate;
(ii) no order shall be varied or reversed unless notice has been given to the parties interested to appear and be heard in support of such order.
... .....
(iv) no order affecting any question of right between private persons shall be reviewed except on an application of a party to the proceedings, and no such application of review of such order shall be entertained unless it is made within ninety days from the passing of the order.
(2) No order shall be reviewed except on the following grounds, namely :--
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(i) discovery of new and important matter or evidence
(ii) some mistake or error apparent on the face of the record ;
(iii) any other sufficient reason.
.... .....
(4) An order which has been dealt with in appeal or on revision shall not be reviewed by any revenue or survey officer subordinate to the appellate or revisional authority.
10. The text of aforesaid section regulates the power of review by
enumerating the authorities under the Code who are empowered to
review their orders, the limits on the power of review, period of
limitation for review, where the order affects the right of private
parties and, more importantly, the grounds on which the review can
be had. The grounds enumerated under sub section (2) of section
258 of the Code are by and large identical to the grounds on which a
judgment can be reviewed under Order XXXXVII of the Code of
Civil Procedure, 1908.
11. A review of a judgment or order can be sought in the
following situations :
(a) Upon the discovery of new or important matter or evidence which, after exercise of due diligence was not within the knowledge of the applicant;
(b) Such important matter or evidence could not be produced by the applicant at the time when the order was passed;
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(c) on account of some mistake or error apparent
on the face of the record;
(d) any other sufficient cause.
12. Clauses (a) and (b) above, are self-explanatory. An error
apparent on the face of the record, as the term signifies, is an error
which is self evident from the record and does not require an
elaborate examination and scrutiny of the matter. If the error is not
self evident and its detection requires a long process of reasoning, it
cannot be treated as an error apparent on the face of the record. It
is also well recognized that 'any other sufficient reason', means a
reason sufficient on grounds at least analogous to those specified in
the preceding clauses.
13. An application for review is more restricted than that of an
appeal and the Court of review has its jurisdiction circumscribed by
the defined limits under the statutory provision. The powers of
review cannot be exercised as an inherent power nor can an
appellate power be exercised in the guise of power of review.
14. In the case at hand, Mr. Arjunwadkar, learned counsel for the
petitioners made an earnest endevour to impress upon the Court
that the Principal Secretary and OSD ought to have deferred the
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matter for hearing on merits once he came to the conclusion that
the order dated 26th August, 2014 passed in second revision by him
warranted review. Mr. Arjunwadkar would urge, where the
authority is called upon to exercise review jurisdiction, a two-stage
inquiry is warranted. First, whether a case to review the order is
made out. Second, if yes, whether the order sought to be reviewed
deserves to be reviewed ?
15. I have extracted relevant part of the provisions of section 258
of the Code, on purpose. From the phraseology of section 258, it
appears difficult to deduce the process of two-stage inquiry
propounded by Mr. Arjunwadkar. As noted above, sub section (2) of
section 258 incorporates the grounds on which an authority can
review its own order. It implies that the authority reviewing its own
order must satisfy itself that one of the three grounds enumerated
in sub section (2) of section 258 of the Act, 1966 is made out. Once
such satisfaction is arrived at, I am afraid it is incumbent upon the
authority to take a pause and defer the hearing of the review
application on merits by recording a tentative finding that review is
warranted.
16. There are two conceivable impediments in the course
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suggested by Mr. Arjunwadkar. One, the very satisfaction that the
order sought to be reviewed warrants review either on account of
discovery of new fact or evidence or an error apparent on the face
of record in itself provides Raison d'etre for the review. Two, it is
not always practicable to appraise the necessity of review and
justifiability of review of the original order in watertight
compartments. Often finding of necessity of review subsumes the
finding on justifiability of review of the original order.
17. In any event, in the absence of any prescription in the Code, in
my view, such a two-stage determination of review application
cannot be put forth as a mater of inviolable procedure. In a given
case, the reviewing authority may consider it appropriate to take a
pause and defer matter for hearing on merits. However, not
following such course of action, without anything more, would not
render the ultimate order passed on review suspect for violation of
fundamental principles of judicial process.
18. In the facts of the case at hand, I do not find that a grievance
of not providing an effective opportunity of hearing while the
review application was heard by the Revisional Authority can be
legitimately made. Thus, the impugned order does not suffer from
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procedural defect of such nature as to warrant interference in
exercise of writ jurisdiction.
19. On the merits of the matter, Mr. Arjunwadkar would submit
that the Additional Commissioner had passed order in 1 st Revisional
Application setting aside the orders passed by appellate authorities
only on the premise of the outcome of the suits instituted between
the parties before the Civil Court. By an order dated 26 th August,
2014 the IInd Revisional Authority had rightly interfered with the
said order. In review, according to Mr. Arjunwadkar, the IInd
Revisional Authority re-appreciated nay misread the evidence and
reviewed its first order. This is impermissible in exercise of review
jurisdiction, urged Mr. Arjunwadkar.
20. To lend support to this submission, Mr. Arjunwadkar placed
reliance on a Division Bench judgment in the case of Balkrishna
Tukaram Shikhare vs. Madhukar Ramchandra Pawar 1 wherein the
limited discretionary nature of review jurisdiction was enunciated.
The Division Bench held that if a Tribunal exceeds the legitimate
limits of its jurisdiction and/or wrongly interferes with its own
orders in the supposed exercise of its review powers, such an order
must be interfered in exercise of writ jurisdiction. 1 1979 Bom. C.R. 653.
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21. Reliance was placed on the observations in paragraph 8
which read as under:-
8] Review jurisdiction is invoked and exercised to correct mistakes or errors apparent on the face of the record and even in the case of such mistakes or errors, to review or not to review is yet discretionary. Having gone a little deeper into the matter and having also gone through the record of the case, we are of the further view that even assuming a case for review had at all been made out, even so discretion, in the facts and circumstances of the present case, pre-eminently required rejection of the review application. The conduct of the respondent is replete with various elements and features which even in a revision application would prevent a Tribunal from exercising its revisional jurisdiction in his favour. Stricter still would be the position against him in a review application. With not a title of title in his favour; with a clear admission of not even knowing who is his landlord; with a further clear admission of not having been paid any rent to any one at any time; with the undisputed position that his name does not find any place even in the record of rights at any time (except the disputed entry duly cancelled) with all these fatal infirmities the respondent still claimed, and indeed succeeded in persuading the Tribunal to hold, that though he failed on merits in appeal and though he failed on merits in his revision therefrom, he should some how or the other be granted relief on appreciation and re-appreciation once again of the entire evidence and that too in a review application. Grant of such claim and relief in a review application is, in the facts and circumstances of the cases, nothing but a travesty of justice. If there have been cases which require interference under Article 227 of the Constitution, the present is pre-eminently one of that nature. If a Tribunal exceeds the legitimate limits of its jurisdiction and/or wrongly interferes with its own orders in the supposed exercise of its review powers, justice will be a casualty and at half mast. A judicial Tribunal is not expected to be at the mercy even of its own whims and caprices.
22. Mr. Arjunwadkar also placed reliance on the decisions of this
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Court in the cases of Anoopchand Nathmal Baid vs. Maharashtra
Revenue Tribunal at Nagpur and Others2 and Genu Laxman Shinde
vs. Chandrakant Dagadu Kotulkar 3, to bolster up the case that in
the case at hand, there was no error apparent on the face of the
record.
23. Lastly, reliance was placed on the judgment of this Court in
the case of Nalini Onkar Patil vs. Girdhar Kashinath Patil and
Others4 wherein import of the provisions contained in section 149 of
the Code 1966 was expounded. It was inter alia observed that none
of those statutory provisions would entitle any person to claim
right to any immovable property by any of the modes specified in
the said section otherwise than by following the procedure
prescribed under the respective statutes. Those provisions of law
invariably provide for necessary documentation either by way of
deeds inter vivos or by way of order of the court or the authority.
24. Mr. Arjunwadkar strenuously urged that in the absence of any
document, which was duly registered and stamped, according to
governing provisions of law, Malgonda could not have given
intimation to mutate the name of Kalgonda, his son, to the subject
2 1986 Mh.L.J. 520.
3 1999(1) Mh.L.J. 235.
4 2002(4) Mh.L.J. 728.
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lands and the authorities could not have mutated the name of
Kalgonda especially when the subject lands were, the joint family
properties. Mr. Arjunwadkar invited the attention of the Court to an
entry in the register of tenants which indicates that the name of
Malgonda was mutated to Survey No. 93 as the Manager of the
Joint Family.
25. It would be imperative to note that the Principal Secretary
and OSD was persuaded to review the order passed on 26 th August,
2014 primarily on three counts. One, no effective opportunity of
hearing was provided to respondent Nos. 1 to 3 and therefore they
could not appear before the State Government when the first order
was passed. Two, important material and evidence could not be
brought before the State Government. Three, the statements of land
owners and tenants indicated that only Malgonda was the tenant of
the subject land and Mahadgonda was not. The material also
indicated that ME. NO.5504 was certified after following due
process. The outcome of the proceedings before the Civil Court
indicated that respondents 4 to 8, the transferee of the successors
in interest of Malgonda had acquired interest in the subject land in
conformity with law. The aforesaid material was, however, not
available when the first order was passed on 26th August, 2014.
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26. Undoubtedly, the review jurisdiction is of limited nature.
Court or Tribunal is not empowered to exercise the appellate
jurisdiction disguised as an exercise in review. However, if the
conditions to exercise the review are made out, then it cannot be
faulted at for the only reason that the original order is reviewed.
27. In the case at hand, the fact that the respondents 1 to 3 had
not appeared when the first order was passed on 26 th August, 2014
is evident from the narration of the facts therein. It was noted that
despite due service, the respondents did not appear. It would be
contextually relevant to note that the respondents 1 to 3 were
prosecuting the proceedings before the Divisional Commissioner
through the POA Shantilal Badbade. This becomes evident from the
judgment passed by the Divisional Commissioner on 3 rd June, 2005
which was impugned by the petitioners before the second
Revisional Authority. Yet, Shantilal Badbade was not impleaded in
the capacity of POA of respondent Nos. 1 to 3. The petitioners could
not have feigned ignorance of respondents 1 to 3 having been
represented through Mr. Badbade.
28. In the circumstances, non appearance of respondents 1 to 3
before the Revisional Authority when the second revision was
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decided by an order dated 26th August, 2014 can be said to have
been satisfactorily accounted for. The Principal Secretary and OSD
was thus justified in recording a finding that the respondents 1 to 3
had no effective opportunity of hearing and resultantly their case
could not be placed before the Revisional Authority.
29. Evidently, the reasons which weighed with the Additional
Divisional Commissioner in allowing the first Revision were not
fully dealt with by the IInd Revisional Authority while passing the
order dated 26th August, 2014. Probably the non representation of
the respondents 1 to 3 before the IInd Revisional Authority
deprived it of the benefits of the contentions on behalf of
respondents 1 to 3.
30. The principal reason which weighed with the Additional
Divisional Commissioner was the outcome of the proceedings before
the Civil Court. It could hardly be disputed that the said matter was
germane. I have perused the plaint in Partition Suit No. 24 of 1976
instituted by Mhadgonda, the predecessor in title of the petitioners,
seeking partition of the joint family properties. It would be suffice to
note that in the said plaint it was categorically asserted that subject
lands stood purchased under the provisions of the Act, 1948 for and
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on behalf of the joint family in the name of Malgonda and the later
was not the sole tenant thereof and on 30 th August, 1972 Malgonda
had surreptitiously got mutated the name of Kalgonda to the
subject land. Mhadgonda thus sought declaration that the subject
lands were the joint family properties and he had one half
undivided interest therein and also prayed for partition and
separate possession thereof. Indisputably, the said suit came to be
dismissed in default on 18th November, 1988.
31. It cannot be controverted that the averments in the plaint in
the said suit constitute the core of the resistance to M.E.No. 5504.
Secondly, in the suits instituted by respondents 4 to 8, the
transferee of the subject lands, being the suit No. 22 of 2006, 23 of
2006 and 24 of 2006, against the petitioners and their predecessor
in title, categorical findings were recorded that the subject lands
were the self-acquired properties of Malgonda, no evidence was
adduced on behalf of the predecessor in title of the petitioners that
the subject lands were joint family properties and Mhadgonda was
never cultivating the subject lands as a member of the joint family.
In contrast, the subject lands were purchased by Malgonda as a
tenant thereof.
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32. In the face of the aforesaid material, in my view, the
Revisional Authority was justified in reviewing its order on the
ground that the aforesaid material and the orders passed by the
authorities under the Act, 1948 could not be considered by the
Revisional Authority when the first order was passed on 26 th
August, 2014. Thus, no fault can be found with the impugned order.
33. The matter can be looked at from another perspective. The
suit instituted by the predecessor in title of the petitioners to assert
that the subject lands constituted joint family property, came to be
dismissed. In other proceedings, the Civil Court as well as the
authorities under the Bombay Tenancy and Agricultural Lands Act,
1948 have recorded the findings that Malgonda was the tenant of
the subject land and Mhadgonda did not cultivate the subject land
in the capacity of tenant as a member of a joint family. Thus the
challenge to Mutation Entry 5504, even otherwise, does not merit
countenance. Resultantly, the petition deserves to be dismissed.
Hence, the following order.
ORDER
1] The petition stands dismissed.
2] Rule discharged.
3] No costs.
(N. J. JAMADAR, J.)
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