Citation : 2021 Latest Caselaw 7534 Guj
Judgement Date : 2 July, 2021
C/SCA/13193/2014 JUDGMENT DATED: 02/07/2021
IN THE HIGH COURT OF GUJARAT AT AHMEDABAD
R/SPECIAL CIVIL APPLICATION NO. 13193 of 2014
With
R/SPECIAL CIVIL APPLICATION NO. 15111 of 2014
FOR APPROVAL AND SIGNATURE:
HONOURABLE MR. JUSTICE J.B.PARDIWALA
and
HONOURABLE MS. JUSTICE VAIBHAVI D. NANAVATI
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1 Whether Reporters of Local Papers may be allowed
to see the judgment ?
2 To be referred to the Reporter or not ?
3 Whether their Lordships wish to see the fair copy
of the judgment ?
4 Whether this case involves a substantial question
of law as to the interpretation of the Constitution
of India or any order made thereunder ?
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RAYSANGJI ABHAJI CHAUHAN & 4 other(s)
Versus
SURAT MUNICIPAL CORPORATION & 1 other(s)
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Appearance:
APPEARANCE DELETED(23) for the Petitioner(s) No. 1,2,3,4,5
NOTICE SERVED(4) for the Petitioner(s) No. 1,2,3,4,5
MR SHIRISH H. SANJANWALA, SENIOR COUNSEL with MR DILIP
KANOJIYA for the petitioners in SCA No.15111 of 2014
MR DHAVAL G NANAVATI(2578) for the Respondent(s) No. 1
RULE SERVED(64) for the Respondent(s) No. 2
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CORAM:HONOURABLE MR. JUSTICE J.B.PARDIWALA
and
HONOURABLE MS. JUSTICE VAIBHAVI D. NANAVATI
Date : 02/07/2021
ORAL JUDGMENT
C/SCA/13193/2014 JUDGMENT DATED: 02/07/2021
(PER : HONOURABLE MS. JUSTICE VAIBHAVI D. NANAVATI)
1. The writ-applicants of both the writ-applications are in the business of supplying water to the various units in GIDC, Pandesara, Surat. Both are also in the business of supplying water to the residential units as well as the industrial houses.
2. The facts giving rise to the Special Civil Application No.15111 of 2014 are as under :-
2.1 The writ-applicants Nos.1 and 2 are carrying on business in the Pandesara Industrial Estate of selling and supplying water to various industrial units through bore-wells. The writ- applicant No.3 represents the labour Union and they are labourers working in the units situated in the Pandesara Industrial Estate.
2.2 According to the writ-applicants, the Surat Municipal Corporation is not able to supply sufficient water to the Pandesara Industrial Estate. The industrial units are compelled to take water supplied through the tankers and private bore- wells. The workers are thus facing serious problem of earning their livelihood and they are compelled to live life without dignity.
2.3 The workers made representation to the writ-applicant No.3 to represent their case before this Court in view of the arbitrary policy of the Corporation that the industrial units are
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not permitted to purchase water from the private suppliers, and in the event the industries purchase water from the private suppliers, they would be held responsible for such conduct by imposition of fine.
2.4 The Pandesara Green Environment and Water Welfare Co.Operative Society Ltd., (hereinafter referred to as the 'Association' for short) and the Surat Municipal Corporation ( hereinafter referred to as the 'Corporation' for short) entered into a Memorandum of Understanding (Agreement) (page-69) on 16.10.2012 as per Clause (12) pursuant to the resolution passed by the Corporation in its general body meeting on 30.3.2011. As per Clause (12) of the resolution dated 13.3.2011, the industrial units shall have to take water only from the Surat Municipal Corporation.
3. Being aggrieved and dissatisfied by the MoU entered into between the Corporation and the Association, the writ- applicants approached this Court by filing the Special Civil Application No.15111 of 2014, seeking the following reliefs :-
"(A) YOUR LORDSHIPS may be pleased to hold that the provisions of Rule 16 of the Gujarat Provincial Municipal Corporation Act, 1949 being ultra-vires Articles 14, 19 and 300-A of the Constitution of India and YOUR LORDSHIPS may be pleased to issue a writ of mandamus and/or any other appropriate writ, order or direction directing the
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respondents not to take any proceedings under Rule 16 on the ground that previous permission in writing of the Commissioner is no obtained:
(B) YOUR LORDSHIPS may be pleased to quash and set aside Clause No.13 of the Agreement entered into between the Surat Municipal Corporation and the Industrial Unit holders and - the Resolution Clause 12 dated 30.3.2011 as bad and illegal and violative of Articles - 14, 19 and 300-A of the Constitution of India;
(C) YOUR LORDSHIPS may be pleased to issue a writ of mandamus or any other appropriate writ, order or direction directing. the respondents not to operate the said Clause No.13 of the Agreement and the Resolution Clause 12 dated 30.3.2011 and compel the petitioners to take water only from the Surat Municipal Corporation and not to take water from the private suppliers of water through the water tankers etc. like the petitioner Nos.1 and 2 and in default, to levy penalty of Rs.1,000/- per tanker or any such amount be stopped;
(D) YOUR LORDSHIPS may be pleased to issue a writ of certiorari and/or any other appropriate writ, order or direction quashing and setting aside the notice dated 23.7.2014 issued by the Surat Municipal Corporation and the Surat Municipal Corporation may be restrained by an appropriate writ from enforcing any such letter to the Unit holders of Pandesara GIDC Estate;
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(E) YOUR LORDSHIPS may be pleased to issue a writ of mandamus or any other appropriate writ, order or direction directing the respondent Corporation and its Officers and Agents and Servants not to seal the premises where bore- wells are situated and bore-wells and not to restrain the tanker operators from supplying water and not to compel the industrial houses, more particularly, situated in GIDC Pandesara not to take water from any other private sources except from Surat Municipal Corporation and shall not take any coercive steps in this regard;
(F) During the pendency and final disposal of the present petition YOUR LORDSHIPS may be pleased to restrain respondent No.1 - Surat Municipal Corporation and respondent No.2 - Executive Engineer, South Zone, Udhna from in any way restraining the persons like the petitioner Nos.1 and 2 and various other Unit holders of the Pandesara GIDC estate from supplying water to the industrial units situated in the GIDC Industrial Estate, Pandesara through water tankers etc. and YOUR LORDSHIPS may be pleased to restrain the Unit and various units functioning in the GIDC Industrial Estate, Pandesara to take water only from the Surat Municipal Corporation and in default thereof, to impose penalty of Rs.1,000/- per tanker or similar amount;
(G) Pass any such other and/or further orders that may be thought just and proper, in the facts and circumstances of the
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present case."
4. The facts giving rise to the Special Civil Application No.13193 of 2014 are as under :-
4.1 The writ-applicants are carrying on the business of supplying water from the bore-well situated in the private land. The writ-applicants possess the requisite leave and license agreement to carry on the business of supplying water to the people of the city of Surat. The writ-applicants are supplying water to the residential units as well as industrial houses.
4.2 According to the the writ-applicants, a show-cause notice came to be issued by the respondent-Corporation under Clause 16(1) of Chapter-14 of Schedule-A of the Act, seeking explanation from the writ-applicants as to why the unauthorized bore-well cannot be removed, as per Clause 16(2) of Chapter 14 of Schedule-A of the Act.
4.3 The writ-applicants, being aggrieved and dissatisfied with the said action of the Surat Municipal Corporation, approached this Court by way of filing the Special Civil Application No.13193 of 2014, seeking the following reliefs :-
"(A) Be pleased to issue a writ of mandamus or any other appropriate writ, order or direction declaring the respondent authorities from in any manner not to stop or intercept the
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petitioners activity of water sues in the limit of Corporation to the needy area through private bore-wells and not to apply any coercive method to stop this activity directly or indirectly.
(B) Pending admission hearing and final disposal of this petition, the Hon'ble court may kindly restrain respondents, its servants and agents from in any manner intercepting or restraining the petitioners from supplying water through private bore-wells and not to give threat or coercive treatment to the petitioners or their employees.
(C) Grant such other and further relief(s) as deemed just and proper by this Hon'ble Court in the interest of justice."
5. The prayers sought for in the Special Civil Applications Nos.15111 and 13139 of 2014 are almost identical and the issues raised in both the writ-applications are with respect to the supply of water by private suppliers supplying water through private bore-well to the residents of the city of Surat as well as the industrial houses. The writ-applications are, therefore, clubbed together and are being taken up for adjudication.
6. This Court passed the following order on 25.6.2021 in the Writ Petition (PIL) No.6 of 2021 :-
"1. Mr. Manoj Danak, the learned counsel appearing for the writapplicant has not joined the video conference.
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2. We have heard Mr. Kaushal Pandya, the learned counsel appearing for the respondent no.2 - Surat Municipal Corporation.
3. Mr. Pandya has given us a fair idea as regards the subject matter of this litigation filed in public interest. Mr. Pandya has drawn our attention to two writ-applications, which are pending as on date before the learned Single Judge. Mr. Pandya further informs that in those two writ-applications, some interim relief has been granted and such relief has a direct bearing so far as the present writ-application filed in public interest is concerned. In such circumstances, post this matter on 02.07.2021 alongwith the Special Civil Application No.13193 of 2014 and Special Civil Application no.15111 of 2014 after obtaining appropriate orders from Hon'ble The Chief Justice.
Let all the three matters be notified together."
Accordingly, the Special Civil Applications are placed before this Court for adjudication.
7. The writ-applicants in both the writ-applications are aggrieved by the restrictions imposed by the respondent - Surat Municipal Corporation in supplying water through private bore-wells and not permitting to supply water at the Pandesara Industrial Estate and other areas of the city of Surat.
C/SCA/13193/2014 JUDGMENT DATED: 02/07/2021
Submissions on behalf of the writ-applicants of Special Civil Application No.15111 of 2014 :
8. Mr. Shirish H. Sanjanwala, the learned Senior Counsel submitted that it is a fundamental right of the writ-applicants to carry on their business. The writ-applicants cannot be, in an arbitrary and unjust manner, restricted from supplying water through water tankers to the industrial units at the Pandesara Industrial Estate.
8.1 It was submitted that the respondent-Corporation issued a show-cause notice to the writ-applicants on 10.7.2014 under Clause 16(1) and (2) of Chapter-14 of Schedule-A of the Gujarat Provincial Municipal Corporation Act. The writ- applicants produced permission taken from the respondent - Corporation for digging private bore-wells. The writ-applicants replied to the said show cause notice on 14.7.2014, stating that digging of bore-well did not fall within the purview of the aforesaid clause, since the writ-applicants are possessing requisite permission taken from the respondent-Corporation for digging private bore-well. The show-cause notice, therefore, could not be enforced against the writ-applicants and the respondent-Corporation could not restrain the writ-applicants from supplying water through their own bore-wells and the notice dated 10.7.2014 be withdrawn. The writ-applicants further replied on 7.7.2014 through their advocate raising the legal issues as well as the factual contentions.
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Submissions on behalf of the respondent - Surat Municipal Corporation :
9. Per contra, Mr. Dhaval G. Nanavati, the learned counsel appearing for the respondent No.1 - Surat Municipal Corporation, submitted at the outset that the writ-applicants have challenged the agreement dated 16.10.2012 and the Clause (12) of the resolution dated 30.3.2011 arrived at between the Association and the Surat Municipal Corporation. It is submitted that the writ-applicants were not the party to the agreement arrived at between the Association and the Surat Municipal Corporation.
9.1 It was further submitted that a duty is cast upon the respondent-Corporation to see that the water supplied by the private suppliers is in accordance with the parameters as laid down by the Bureau of Indian Standard (BIS) / Central Public Health Engineering and Environment Organization (CPHEEO) or the organizations like WHO as well as the provisions of the Gujarat Provincial Municipal Corporation Act, 1949.The relevant extract from para-12 of the affidavit-in-reply of the Corporation is reproduced hereinbelow:-
"12. .........drinking water standard - IS 10500-2012 of Bureau of Indian Standard (BIS) / Central Public Health Engineering and Environment Organization (CPHEEO) or the organization like WHO, the first respondent, under
C/SCA/13193/2014 JUDGMENT DATED: 02/07/2021
the provisions of the statute, are required to undergo all the water quality testing requirements towards testing of essential water quality parameters like Turbidity, Total Dissolved Solids (TDS), pH, Ammonia, Total Hardness, Free Residual Chlorine (FRC) etc. so specified by thedrinking water standard IS 10500-2012 of BIS, whereas the private suppliers do not have any mechanism or machinery or water quality monitoring and testing facilities / laboratories to meet with such requirement or the specifications fixed by the above referred agencies. Hence, the stand of respondent authority is justified that water is dealing with public health and is supplied accurately".
9.2 It was submitted that the writ-applicants as well as the respondent-Corporation both are governed by the provisions of the Gujarat Provincial Municipal Corporation Act, 1949 and the same are required to be complied with. Paragraphs 14, 15, 16 and 17 of the affidavit-in-reply of the respondent-Corporation are reproduced hereinbelow for ready reference.
"(14) It is stated that u/s. 189 of the BPMC Act, the first respondent has to arrange to supply the water to any portion of city from the municipal water works by means of private water connections or public stand post or any other means, which shall be incumbent of the first
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respondent to take all such measures as may be practicable to ensure that sufficient supply is available for meeting the reasonable requirements of the citizens of such portion of city.
(15) It is stated that u/s.194 of BPMC Act, except with the permission of the Corporation, no persons shall erect any building for any purpose whatever on any part of such area as shall be demarcated by the first respondent surrounding any lake, tank, well or reservoir from which a supply of water is derived for a municipal water-work.
(16) It is stated that as per the provisions of sub-section 1 of Section 196 of BPMC Act all the existing public drinking fountains, tanks, reservoirs, cisterns, pumps, wells, ducts and works for the supply Of water for the gratuitous use of the inhabitants of the City shall vest in the Corporation and be under the control of the first respondent. Sub-section 2 Of Section 196 of BPMC Act, the first respondent may maintain the said works and provide them with water and when authorized by the first respondent in this behalf may construct any other such works for supplying water for the gratuitous use of the inhabitants of the city of Surat.
(17) It is stated that as per the provisions enumerated in
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sub-section 1 of Section 16, Chapter 13 Schedule-A of the Bombay Provincial Municipal Corporation Act, 1949 no person much less and individual can supply water through tube wells, tankers, or by any other means, without prior permission of the first respondent in writing within the territorial jurisdiction and limits of city of Surat. In the present case on hand, the petitioners have miserably failed to produce or reliable piece of evidence which can be suggested that the petitioners have approached the first or the second respondents seeking the permission has contemplated in the statute i.e. the BPMC Act, and have received the permission from the hands of the first or the second respondents in connection with supplying water to the Pandesara GIDC Industrial Estate. In fact, the reply dated 14.7.2014 to notice dated 10.7.2014 is also not spelled out that the petitioners have taken the permission from first and second respondents and continued their business illegally and unauthorizedly and supplying the water to units / plot holders of the said industrial estate by colluding with the plot or the unit holders, wherein the plots/units holders get the necessary water at a low rate and also escaped from paying water taxes to the first respondent if they sought supply from the first respondent officially and to save the tax and higher rate for good quality water, the unit or plot holders have issued the Certificates to the petitioners only with a view to see that
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they get water at cheap rate and easily escape from paying the water tax to the first respondent."
9.3 It is further submitted that the writ-applicants were never stopped from carrying on the business of water supply through tankers in the city of Surat by the respondent- Corporation after following the rules and regulations framed for the said purpose. The restriction is only qua the supply of water to the industrial unit holders situated at the Pandesara Industrial Estate, who are the members of the Association and have agreed with the terms and conditions of the agreement of the Corporation. Except that, the writ-applicants are free to sell water through tankers anywhere in the city of Surat in accordance with the procedure established under the law.
9.4 It is further submitted that a Coordinate Bench of this Court was pleased to hear the matter on 28.4.2015, and after a bi-parte hearing, was pleased to pass a detailed reasoned order whereby, by way of an interim relief, the writ-applicant was granted liberty to supply water, and if there is any breach of license or digging of any bore-well without any permission or license, consequences would follow and the first and the second respondents were granted liberty to take necessary action. It would be open for the writ-applicant to carry on such business of supply of water through tankers without violating any rules with regard to the bore-well, license for
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such bore-well or any other restrictions which may be reasonably imposed by the Corporation as per the rules. The learned Judge (Rajesh H. Shukla, J as His Lordships then was), by way of granting interim relief in the Special Civil Application No.15111 of 2014, held in paragraph-7 as under:-
"7. By way of interim relief, the petitioners would be at liberty to supply water and if they commit any breach of licence or digs any borewell without any permission or licence necessary consequences may follow and the Corporation may be at liberty to take necessary action. Therefore, it will be open for the petitioners to carry on such business of supply of water through tanker without violating any norms with regard to the bore-well, licence for such bore-well or any other restrictions which may be reasonably imposed by the Corporation as per the rules."
9.5 The writ-applicant filed a Civil Application (for orders) No. 7685 of 2015 before this Court with a following prayer that:-
"the order passed by this Court on 28.4.2015 in the aforesaid Special Civil Application No. 15111 of 2014 may be "suitably modified so that the petitioners can supply water through their tankers and pipelines to the industrial units at Pandesara till the pendency and final disposal of the main Special Civil Application.".
The said Civil Application came to be dismissed by an order dated 17.7.2015, and this Court, in para 3 of the order, has specifically observed as under: -
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"3. ...........The court has passed a specific order in para 7 which is self-explanatory that the petitioners were at liberty to supply water subject to the rider that if any breach of any condition of licence or digging bore-well etc. is committed, consequences may follow. It is also made clear that other restrictions which may be reasonably imposed by the Corporation as per rules would apply. Therefore, there is no need to make any clarification as sought by learned Sr. Counsel Shri Sanjanwala which is in fact trying to modify that the petitioners may be permitted to supply water through tankers without any riders stated in the original order."
9.6 He has further submitted that on 27.8.2014, the respondent-Corporation once again called the writ-applicant to personally remain present on 1.9.2014 with the documentary evidence, to which the writ-applicant appeared before the respondent-Corporation and a further opportunity was granted and he was heard on 9.9.2014. The writ-applicant was heard by the Additional City Engineer (Electrical & Mechanical) and the Additional City Engineer (Civil). The first respondent accorded a personal hearing to the writ-applicant on 20.2.2015 and passed an order dated 13.8.2015 under Section 478 read with Section 16(2) of the Act directing closure of the business of the writ-applicant.
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10. We have heard Mr. Shirish H. Sanjanwala, the learned Senior Counsel assisted by Mr. Dilip Kanojiya, the learned advocate for the writ-applicants in the Special Civil Application No.15111 of 2014 and Mr. Dhaval G. Nanavati, the learned counsel appearing for the respondent No.1 - Surat Municipal Corporation in Special Civil Application No.15111 of 2014.
11. When the Special Civil Application No.13193 of 2014 was taken up for hearing, neither the writ-applicants nor the advocate for the writ-applicants joined the video conference. It appears from the record that the writ-applicants are served with the notice of this Court but they have chosen not to appear. In view of the similarity of the issue involved, the same is also taken up for adjudication.
Analysis :
12. Taking into consideration the submissions advanced by the learned counsel appearing for both the sides, we are of the view that the writ-applicants were permitted to continue their business in accordance with the rules and regulations of the GPMC Act, 1949, by interim order dated 28.4.2015 passed in the Special Civil Application No.15111 of 2014.
13. The writ-applicants of the Special Civil Application No.15111 of 2014 have not challenged qua prayer (A) of the writ-application which challenges Rule 16 of the GPMC Act,
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1949, being arbitrary and violative of Articles 14, 19 and 300A of the Constitution of India.
14. In view of the above considered factual aspects and taking into consideration the submissions of the learned counsel for the respective parties, the following position emerges:
(a) The writ-applicants have narrowed down their challenge to the agreement entered into between the Corporation and the Association as per Clause (12) of the resolution passed by the Corporation in its general body meeting dated 30.3.2011. The writ-applicants are not a privy to the agreement entered into between the Corporation and the Association and the resolution was passed in the general body meeting of the Corporation dated 30.3.2011 qua the industrial units.
(b) The Memorandum of Understanding is entered into between the Corporation and the members of the Association dated 16.10.2012, from which it is clear that the writ- applicants are not party to the said agreement, though the workers have espoused their grievance through the writ- applicant No.3, i.e. Labour Union, and have reproduced their grievance in the present writ-application.
(c) The MOU dated 16.10.2012 governs the relationship between the Surat Municipal Corporation and the Pandesara
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Green Environment & Water Welfare Cooperative Society Ltd. pursuant to the resolution dated 30.03.2011 of the Municipal Corporation under which the Industrial Units are required to take water only from the Surat Municipal Corporation.
(d) The applicants are not parties to the said agreement and are not directly affected by the terms & conditions arrived at between both the parties. The applicants, having narrowed down their challenge to the agreement, they cannot be said to have been aggrieved so as to grant them any relief under Article 226 of the Constitution of India.
(e) The applicants are not able to establish that they are deprived of their legal right to carry on the trade or they have sustained any legal injury. The applicants having no right, legal or contractual, the applicants are not entitled for a writ of mandamus for setting aside the terms & conditions of the said Memorandum. The applicants can carry on their business in accordance with law as no one has barred them from conducting their business for which they may have to follow the rules and regulations of the Surat Municipal Corporation. The same cannot be, in any terms, said to have infringed any right by any means.
(f) It appears that the writ-applicants are seeking writ of mandamus under Article 226 of the Constitution of India
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impugning the resolution of the Corporation which is not even binding to the writ-applicants in any manner. Hence the writ- applicants cannot be, in any way, said to have been aggrieved by the aforesaid agreement.
(g) The respondent-Corporation has submitted that the writ- applicants are in no way restrained from conducting their business of providing water through water tanker from their private bore-well and continue their business. It is always open for the writ applicants to conduct their business in accordance with the prevailing rules and regulation.
15. Hence it is clear that there is no restraint of any nature against the writ-applicants to conduct their business. There is nothing on record to show that the self-imposed restriction on the members of the Association as per the terms of the agreement with the Corporation affects the writ-applicants especially when the same is governed by an agreement for supply of water to the members of the association only. The said agreement nowhere puts any restriction or even a condition on the writ-applicants in administering their trade and profession of water-supply. Even otherwise, the terms and conditions of the agreement are to be followed by the parties to the agreement and any violation of the same has its consequences in the agreement itself and the writ-applicants has no role to be played in the same. Adherence or violation
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of the terms of the agreement between the Association and the Corporation is in the realm of a private contract and this Court has no role to play to settle or amend the terms of the contract on the insistence of a litigant who is not even a party to the contract.
16. Hence this Court does not deem it fit to pass any directions in favour of the writ-applicants, but it is made clear that there is no restriction on the writ-applicant to carry on their business of water-supply except that they have to adhere to the rules and regulations of the concerned authorities for water-supply. The same is required to be followed by the writ- applicants in its proper sense and any violation of the same may lead to its consequences as per the prevailing rules and regulations.
17. In view of the aforesaid observations and discussions, the totality of the issues involved in both these writ-applications and in view of the findings of the Special Civil Application No. 15111 of 2014 no further orders are required to be passed in the Special Civil Application No. 13193 of 2014.
18. Accordingly, both the writ applications are disposed of.
(J. B. PARDIWALA, J)
(VAIBHAVI D. NANAVATI,J) K.K. SAIYED
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