REPORTABLE
IN THE SUPREME COURT OF INDIA
CIVIL APPELLATE JURISDICTION
CIVIL APPEAL NO._4515 OF 2022
[Arising out of Special Leave Petition (Civil) No.10427 of
2022]
ARDHENDU KUMAR DAS ...APPELLANT(S)
VERSUS
THE STATE OF ODISHA AND ORS. ...RESPONDENT(S)
WITH
CIVIL APPEAL NO.4516 OF 2022
[Arising out of Special Leave Petition (Civil) No.10428 of
2022]
JUDGMENT
B.R. GAVAI, J.
1. Both these petitions challenge the interlocutory order
dated 9th May, 2022, passed by the Division Bench of the High
Court of Orissa at Cuttack, in Writ Petition (Civil) No.6257 of
2022, wherein the Division Bench of the High Court has
1
recorded certain submissions and statements made by the
learned Advocate General appearing on behalf of the State of
Odisha and directed the matter to be posted on 22nd June, 2022
along with Writ Petition (Civil) No. 10153 of 2022. From the
tenor of the arguments advanced by the learned counsel for the
petitioners, it appears that they are basically aggrieved since
the High Court has not granted an interim order restraining the
respondents from proceeding further with the construction.
2. The factual background leading to the filing of the present
proceedings is thus:
3. A Public Interest Litigation being Writ Petition (Civil)
No.6257 of 2022 came to be filed before the High Court of
Orissa by one Dillip Kumar Baral challenging the alleged
unsanctioned and unauthorised construction activities
undertaken by the respondent Nos. 1 and 2 within the
prohibited area of the Shree Jagannath Temple complex in
contravention of the provisions of The Ancient Monuments and
2
Archaeological Sites and Remains Act, 1958 (hereinafter
referred to as “the said Act”)
4. It appears that initially the said writ petition was listed
before the Division Bench of the High Court on 8th April, 2022,
on which date, certain statements made by the learned
Advocate General were taken on record. Subsequently, when
the matter was listed on 21st April, 2022, certain further orders
came to be passed. Subsequently, the order dated 9th May,
2022 has been passed by the High Court, which is impugned in
the present Special Leave Petitions.
5. The petitionerArdhendu Kumar Das in Special Leave
Petition (Civil) Diary No.16718 of 2022 is not the petitioner
before the High Court. However, he claims to be an ardent
devotee of Lord Jagannath and therefore, had filed an
Intervention Application before the High Court, which is
pending consideration. The petitioner has therefore filed an
Interlocutory Application seeking permission to file the present
3
Special Leave Petition challenging the order dated 9th May, 2022
of the Division Bench of the High Court.
6. The petitionerSumanta Kumar Ghadei in Special Leave
Petition (Civil) Diary No.17078 of 2022 is also not the petitioner
before the High Court. The said petitioner had also filed an
Intervention Application in the writ petition before the High
Court, which is pending adjudication. The said petitioner
claims to be a social activist and businessman, who is a devotee
of Lord Jagannath and also claims to have done research and
has keen interest in ancient monuments and sculptures of the
State.
7. Taking into consideration the fact that larger issues
involving public interest are involved, we allow the said
applications for permission to file Special Leave Petitions. We
also grant leave in both these Special Leave Petitions.
8. An impleadment application has been filed by Raghunath
Gochhikar and others, who claim to be Sevayats. The
applicants support the stand of the State Government. We are
4
inclined to allow their application and permit them to intervene.
It is ordered accordingly.
9. We have heard Ms. Mahalakshmi Pavani, learned Senior
Counsel appearing on behalf of the appellantArdhendu Kumar
Das, Mr. Vinay Navare, learned Senior Counsel appearing on
behalf of the appellantSumanta Kumar Ghadei, Mr. Ashok
Parija, learned Advocate General for State of Odisha, Mr. Kapil
Sibal and Mr. Pinaki Mishra, learned Senior Counsel appearing
on behalf of the respondentState, Mr. A.D.N. Rao, learned
Senior Counsel appearing on behalf of the Archaeological
Survey of India (“ASI” for short), Mr. Swetaretu Mishra, learned
counsel appearing on behalf of the respondent Nos. 5 to 7
Shree Jagannath Temple Managing Committee and Mr. Pai
Amit, learned counsel appearing on behalf of the
applicants/interveners/impleaders.
10. Ms. Mahalakshmi Pavani, learned Senior Counsel submits
that in view of subsection (4) of Section 20A of the said Act, no
permission can be granted for carrying out any public work or
5
project essential to the public or other constructions in any
prohibited area on and after the date on which the Ancient
Monuments and Archaeological Sites and Remains
(Amendment and Validation) Bill, 2010 receives the assent of
the President. Ms. Pavani further submitted that the
communication dated 5th February, 2022, addressed by the
Conservation Assistant, ASI, to the Sr. Project Manager, OBCC,
would show that the respondent Nos. 1 and 2 were carrying out
unauthorised construction within the prohibited area of the
Centrally Protected Monument of Shree Jagannath Temple.
She further submits that the inspection report would reveal
that there are serious irregularities in the work carried out by
the respondentsState. She further submits that voluminous
excavation is being done near the Temple, which would be
hazardous to the Temple, which is an old structure.
11. Shri Vinay Navare, learned Senior Counsel submits that
insofar as the socalled “No Objection Certificate” (“NOC” for
short) issued by the National Monuments Authority (“NMA” for
6
short) dated 4th September, 2021, is concerned, the said
Authority has no authority in law to permit construction.
Relying on the provisions of Section 20I of the said Act, he
submits that NMA is only a recommendatory authority and has
no authority in law to permit any construction either in the
prohibited area or in the regulated area. He further submits
that if any construction activity is to be undertaken in a
prohibited area, the same has to be undertaken only by the ASI
and by no other authority.
12. Both the learned counsel therefore submit that it is
necessary to injunct the respondentsState from carrying out
any further construction activity during the pendency of the
present appeals.
13. Shri Ashok Parija, learned Advocate General, submits that
under clause (da) of Section 2 of the said Act, the word
“Authority” has been defined to mean the NMA constituted
under Section 20F. He submits that clause (db) of Section 2 of
the said Act defines “competent authority” to mean an officer
7
not below the rank of Director of archaeology or Commissioner
of archaeology of the Central or State Government or equivalent
rank, specified, by notification in the Official Gazette, as the
competent authority by the Central Government. He submits
that the Government of India vide Notification dated 13th
February, 2012, in exercise of the powers conferred by the
proviso to clause (db) of Section 2 of the said Act has notified
Director, Culture, Department of Tourism and Culture
(Culture), Government of Odisha, Bhubaneshwar as the
“competent authority” for the State of Odisha for the purpose of
Sections 20C and 20D of the said Act. The learned Advocate
General further submits that “grant of permission by competent
authority” is regulated by Section 20D of the said Act. He
further submits that in view of the provisions of Section 20D of
the said Act, the competent authority for the State of Odisha
had made an application for grant of NOC to NMA. NMA vide
order dated 4th September, 2021 granted its NOC for carrying
8
out various works within the prohibited area and the regulated
area.
14. The learned Advocate General further submitted that
clause (dc) of Section 2 of the said Act defines “construction”.
He submits that the definition specifically excludes any reconstruction, repair and renovation of an existing structure or
building, or, construction, maintenance and cleansing of drains
and drainage works and of public latrines, urinals and similar
conveniences, or, the construction and maintenance of works
meant for providing supply of water for public, or, the
construction or maintenance, extension, management for
supply and distribution of electricity to the public or provision
for similar facilities for public.
15. The learned Advocate General further submitted that the
threeJudge Bench of this Court in the case of Mrinalini
Padhi vs. Union of India and others1 has itself found that it
was necessary to construct separate toilets for male and female.
1 (2019) 18 SCC 1
9
He further submitted that this Court in the said case itself has
directed ASI to cooperate and to permit the activities of
improvement which are necessary for providing facilities to the
public at large.
16. Mr. Pinaki Mishra, learned Senior Counsel, submits that
taking into consideration the fact that there was serious
inconvenience to the devotees who throng in lakhs during the
Rath Yatra period, it was found necessary that the area within
the radius of 75 meters surrounding the Temple be cleared for
passage to the devotees. He submitted that on an average,
about 60,000 devotees visit the Temple every day. There are no
proper queues for the devotees to maintain discipline and enter
the Temple. He submits that the basic facilities like toilets for
women and men were lacking. As such, taking into
consideration the larger public interest, the Government had
acquired the buildings in the vicinity which were constructed
as lodges decades ago, by spending an amount of Rs.700
crores. He submitted that the entire area surrounding the
10
Temple was acquired through negotiations without resorting to
the provisions of the Land Acquisition Act. He submits that
these buildings were owned by Sevayats, who are also not
opposing the developmental work surrounding the Temple and,
on the contrary, support the same.
17. Mr. Pai Amit, learned counsel appearing on behalf of the
applicants/interveners/impleaders and Mr. Swetaretu Mishra,
learned counsel appearing on behalf of Shree Jagannath
Temple Managing Committee also support the submissions
made by the learned Advocate General.
18. Mr. A.D.N. Rao, learned Senior Counsel appearing for ASI
submits that the stand of the ASI is reflected in the affidavit
filed before the High Court of Orissa and states that the ASI
has no objection to the construction being carried out strictly in
conformity with the provisions of law.
19. Though the present appeals challenge the interlocutory
order passed by the Division Bench of the High Court, since
lengthy arguments have been advanced on behalf of both the
11
parties, we find it appropriate to consider the submissions on
merits, as advanced.
20. Before we consider the challenge with regard to violation
of the statutory provisions, it will be apposite to refer to an
earlier decision of this Court, which will have a bearing on the
decision in the present matter.
21. A threeJudge Bench of this Court in the case of
Mrinalini Padhi (supra), had an occasion to consider the
situation prevailing in the vicinity of Shree Jagannath Temple.
This Court in the said case had initially passed an order on 8th
June, 2018, directing the District Judge, Puri to submit a
report. This Court thereafter vide order dated 9th January,
2019, appointed Shri Ranjit Kumar, learned Senior Counsel as
Amicus Curiae and Ms. Priya Hingorani, learned Senior
Counsel was requested to assist him in the matter. Shri Ranjit
Kumar, learned Amicus Curiae has submitted interim reports
from time to time on the basis of which certain orders came to
be passed. Finally, vide the order dated 4th November, 2019,
12
this Court issued various directions. While issuing the
directions, this court had also taken on record the views of
various stakeholders.
22. This Court in paragraph 17 of the judgment in the case of
Mrinalini Padhi (supra) had found that redevelopment plan
around the Temple is mainly to decongest the area for the
benefit of pilgrims and to make the city of Puri a world heritage
city. This Court also recorded that nobody was opposing the
reforms for the betterment of the place. This Court also noticed
in paragraph 18 that during the annual Rath Yatra, lakhs of
people visit the Temple town and the congregation is
unmanageable.
23. This Court took on record the observations of Shri Ranjit
Kumar, learned Amicus Curiae as well as Ms. Priya Hingorani,
learned Senior Counsel, who had personally visited the Temple
premises. A perusal of the order would reveal that this Court
had also requested Shri Tushar Mehta, learned Solicitor
General of India to personally visit the Temple premises. From
13
their observations, it was found that the Temples inside the
Mathas, their Gaadis, Samadhis and other artefacts have been
preserved.
24. In paragraph 40, this Court issued various directions. In
paragraph 40.15, this Court directed that there was necessity
to have a proper darshan by people at large. It was also
directed that it was necessary to avoid commotion and chaos as
large number of pilgrims visit the Temple every day. This Court
therefore directed the Temple Administration and the Chief
Administrator including the State Government to prepare a
roadmap with the help of experts for having proper darshan by
the devotees/pilgrims. In paragraph 40.16, this Court further
directed the Temple administration and also the Temple police
to ensure that there would be a dedicated section of personnel
to tighten security inside the Temple and ensure that no such
incident takes place in the Temples and no misbehaviour is
meted out to women.
14
25. It will also be relevant to reproduce the directions in
paragraph 40.19 and 40.20, which read thus:
“40.19. The learned Amicus Curiae has also
pointed out that there is a necessity for
separate toilets for male and female. We direct
that let the toilets be provided with modern
amenities and should be kept absolutely clean.
The number of toilets shall be adequate having
regard to the average footfall in the temple,
which is large in number.
40.20. There is a necessity pointed out about
the cloak rooms. Let steps be taken by the
Temple administration in this regard.”
26. It could thus be seen that the threeJudge Bench of this
Court has emphasized on the necessity to have separate toilets
for male and female. This Court further directed that the toilets
be provided with modern amenities and should be kept
absolutely clean. This Court also directed that the number of
toilets shall be adequate having regard to the average footfall in
the Temple. This Court further emphasized the necessity to
15
have cloak rooms and directed the Temple administration to
take steps in that regard.
27. This Court further directed the ASI to cooperate and to
permit the activities of improvement which are not prima facie
objectionable and are necessary for public hygiene, sanitation
and public health. This Court only put a rider that the form of
the new structure is maintained in the same manner as the
ancient one.
28. It would thus clearly reveal that the nature of construction
which is undertaken by the respondentsState and the Temple
administration is in tune with the directions issued by this
Court.
29. In this background, we will proceed to consider the
submissions with regard to the violation of the provisions of the
said Act.
30. Clauses (da), (db) and (dc) of Section 2 of the said Act
define “Authority”, “competent authority” and “construction”
respectively, which are as under:
16
“2. Definitions. In this Act, unless the
context otherwise requires,
(a) ………………………………………………….
(da) “Authority” means the National
Monuments Authority constituted under
Section 20F;
(db) “competent authority” means an officer
not below the rank of Director of
Archaeology or Commissioner of
Archaeology of the Central or State
Government or equivalent rank, specified,
by notification in the Official Gazette, as
the competent authority by the Central
Government to perform functions under
this Act:
Provided that the Central Government
may, by notification in the Official
Gazette, specify different competent
authorities for the purpose of Sections 20
C, 20D and 20E;
(dc) “construction” means any erection of a
structure or a building, including any
addition or extension thereto either
vertically or horizontally, but does not
include any reconstruction, repair and
renovation of an existing structure or
building, or, construction, maintenance
and cleansing of drains and drainage
works and of public latrines, urinals and
similar conveniences, or, the construction
and maintenance of works meant for
providing supply of water for public, or,
the construction or maintenance,
extension, management for supply and
17
distribution of electricity to the public or
provision for similar facilities for public;”
31. Section 20A of the said Act reads thus:
“PROHIBITED AND REGULATED AREAS
20A. Declaration of prohibited area and
carrying out public work or other works
in prohibited area.—Every area,
beginning at the limit of the protected
area or the protected monument, as the
case may be, and extending to a distance
of one hundred metres in all directions
shall be the prohibited area in respect of
such protected area or protected
monument:
Provided that the Central Government
may, on the recommendation of the
Authority, by notification in the Official
Gazette, specify an area more than one
hundred metres to be prohibited area
having regard to the classification of any
protected monument or protected area,
as the case may be, under Section 4A.
(2) Save as otherwise provided in
Section 20C, no person, other than an
archaeological officer, shall carry out any
construction in any prohibited area.
(3) In a case where the Central
Government or the DirectorGeneral, as
the case may be, is satisfied that—
18
(a) it is necessary or expedient for carrying
out such public work or any project
essential to the public; or
(b) such other work or project, in its
opinion, shall not have any substantial
adverse impact on the preservation,
safety, security of, or, access to, the
monument or its immediate
surrounding.
It or he may, notwithstanding
anything contained in subsection (2), in
exceptional cases and having regard to
the public interest, by order and for
reasons to be recorded in writing, permit,
such public work or project essential to
the public or other constructions, to be
carried out in a prohibited area:
Provided that any area near any
protected monument or its adjoining
area declared, during the period
beginning on or after the 16th day of
June, 1992 but ending before the date
on which the Ancient Monuments and
Archaeological Sites and Remains
(Amendment and Validation) Bill, 2010,
receives the assent of the President, as a
prohibited area in respect of such
protected monument, shall be deemed to
be the prohibited area declared in
respect of that protected monument in
accordance with the provisions of this
Act and any permission or licence
granted by the Central Government or
the DirectorGeneral, as the case may
be, for the construction within the
19
prohibited area on the basis of the
recommendation of the Expert Advisory
Committee, shall be deemed to have
been validly granted in accordance with
the provisions of this Act, as if this
section had been in force at all material
times:
Provided further that nothing
contained in the first proviso shall apply
to any permission granted, subsequent
to the completion of construction or reconstruction of any building or structure
in any prohibited area in pursuance of
the notification of the Government of
India in the Department of Culture
(Archaeological Survey of India) Number
S.O. 1764, dated the 16th June, 1992
issued under Rule 34 of the Ancient
Monuments and Archaeological Sites
and Remains Rules, 1959, or, without
having obtained the recommendations of
the Committee constituted in pursuance
of the order of the Government of India
Number 24/22/2006M, dated the 20th
July, 2006 (subsequently referred to as
the Expert Advisory Committee in orders
dated the 27th August, 2008 and the 5th
May, 2009).]
(4) No permission, referred to in subsection (3), including carrying out any
public work or project essential to the
public or other constructions, shall be
granted in any prohibited area on and
after the date on which the Ancient
Monuments and Archaeological Sites
and Remains (Amendment and
20
Validation) Bill, 2010 receives the assent
of the President.”
32. Sections 20C and 20D of the said Act read thus:
20C. Application for repair or
renovation in prohibited area, or
construction or reconstruction or
repair or renovation in regulated area.—
(1) Any person, who owns any building or
structure, which existed in a prohibited
area before the 16th day of June, 1992, or,
which had been subsequently constructed
with the approval of the DirectorGeneral
and desires to carry out any repair or
renovation of such building or structure,
may make an application to the competent
authority for carrying out such repair or
renovation, as the case may be.
(2) Any person, who owns or possesses
any building or structure or land in any
regulated area, and desires to carry out
any construction or reconstruction or
repair or renovation of such building or
structure on such land, as the case may
be, may make an application to the
competent authority for carrying out
construction or reconstruction or repair or
renovation, as the case may be.
GRANT OF PERMISSION BY COMPETENT
AUTHORITY
21
20D. Grant of permission by competent
authority within regulated area.—(1)
Every application for grant of permission
under Section 20C of this Act shall be
made to the competent authority in such
manner as may be prescribed.
(2) The competent authority shall,
within fifteen days of the receipt of the
application, forward the same to the
Authority to consider and intimate impact
of such construction (including the impact
of largescale development project, public
project and project essential to the public)
having regard to the heritage byelaws
relating to the concerned protected
monument or protected area, as the case
may be:
Provided that the Central Government
may prescribe the category of applications
in respect of which the permission may be
granted under this subsection and the
application which shall be referred to the
Authority for its recommendations.
(3) The Authority shall, within two
months from the date of receipt of
application under subsection (2), intimate
to the competent authority impact of such
construction (including the impact of largescale development project, public project
and project essential to the public).
(4) The competent authority shall,
within one month of the receipt of
intimation from the Authority under subsection (3), either grant permission or
22
refuse the same as so recommended by the
Authority.
(5) The recommendations of the
Authority shall be final.
(6) In case the competent authority
refuses to grant permission under this
section, it shall, by order in writing, after
giving an opportunity to the concerned
person, intimate such refusal within three
months from the date of receipt of the
application to the applicant, the Central
Government and the Authority.
(7) If the competent authority, after
grant of the permission under subsection
(4) and during the carrying out of the
repair or renovation work or reconstruction of building or construction
referred to in that subsection, is of the
opinion (on the basis of material in his
possession or otherwise) that such repair
or renovation work or reconstruction of
building or construction is likely to have
an adverse impact on the preservation,
safety, security or access to the monument
considerably, it may refer the same to the
Authority for its recommendations and if
so recommended, withdraw the permission
granted under subsection (4) if so
required:
Provided that the competent authority
may, in exceptional cases, with the
approval of the Authority grant permission
to the applicant referred to in subsection
(2) of Section 20C until the heritage bylaws have been prepared under sub23
section (1) of Section 20E and published
under subsection (7) of that section.
(8) The Central Government, or the
DirectorGeneral, as the case may be, shall
exhibit, on their website, all the
permissions granted or refused under this
Act.”
33. It could thus be seen that the “authority” has been defined
under Section 2(da) of the said Act to be a “National
Monuments Authority” constituted under Section 20F of the
said Act.
34. As per Section 2(db) of the said Act, the “competent
authority” means an officer not below the rank of Director of
archaeology or Commissioner of archaeology of the Central or
State Government or equivalent rank, specified, by notification
in the Official Gazette, as the competent authority by the
Central Government to perform functions under the said Act.
35. Undisputedly, the Director, Culture, Department of
Tourism and Culture (Culture), Government of Orissa, vide
notification issued by the Government of India dated 13th
24
February 2012, has been notified to be “competent authority”
for the State of Orissa for the purposes of Sections 20C and
20D of the said Act.
36. Clause (dc) of Section 2 of the said Act would be the most
important one. The definition of “construction” specifically
excludes the following:
(i) Reconstruction, repair and renovation of an existing
structure or building;
(ii) Construction, maintenance and cleansing of drains and
drainage works and of public latrines, urinals and
similar conveniences;
(iii) Construction and maintenance of works meant for
providing supply of water for public; and
(iv) Construction or maintenance, extension, management
for supply and distribution of electricity to the public or
provision for similar facilities for public.
37. No doubt that the learned counsel for the appellant is
right in relying on subsection (4) of Section 20A of the said Act
25
which prohibits any permission including the one for carrying
out any public work or project essential to the public or other
constructions in any prohibited area referred to in subsection
(3) thereof on and after the date on which the Ancient
Monuments and Archaeological Sites and Remains
(Amendment and Validation) Bill, 2010 receives the assent of
the President. The same was brought into the statute book by
Act No. 10 of 2010.
38. It is further to be noted that by the very same amendment,
Section 20C of the said Act has also been brought into the
statute book. Subsection (1) of Section 20C of the said Act
provides that any person, who owns any building or structure,
which existed in a prohibited area before 16th June, 1992, or,
which had been subsequently constructed with the approval of
the DirectorGeneral and desires to carry out any repair or
renovation of such building or structure, may make an
application to the competent authority for carrying out such
repair or renovation, as the case may be. Likewise, subsection
26
(2) of Section 20C of the said Act enables a person, who owns
or possesses any building or structure or land in any regulated
area, and desires to carry out any construction or reconstruction or repair or renovation of such building or
structure on such land, as the case may be, to make an
application to the competent authority for carrying out
construction or reconstruction or repair or renovation, as the
case may be.
39. Section 20D of the said Act deals with grant of permission
by competent authority within regulated area. Subsection (1)
of Section 20D of the said Act provides that an application for
grant of permission under Section 20C of the said Act, shall be
made to the competent authority. Subsection (2) thereof
requires the competent authority to forward the same to the
authority to consider and intimate impact of such construction
having regard to the heritage byelaws relating to the concerned
protected monument or protected area. Under proviso to subsection (2) thereof, the Central Government is empowered to
27
prescribe the category of applications in respect of which the
permission will be granted under this subsection and the
applications which shall be referred to the authority for its
recommendations. Under subsection (3) thereof, the authority
is required to intimate, within two months from the date of
receipt of application under subsection (2) thereof, to the
competent authority, the impact of such construction etc.
Under subsection (4) thereof, the competent authority is
required to either grant permission or refuse the same as so
recommended by the authority within one month of the receipt
of intimation from the authority under subsection (3) thereof.
Under subsection (5) thereof, a finality is given to the
recommendations of the authority.
40. It is a settled principle of law that all the provisions in the
statute have to be read harmoniously. It is presumed that each
and every provision has been brought by the legislature into the
statute book with some purpose. A particular provision cannot
be read in isolation and has to be read in context to each other.
28
An attempt has to be made to reconcile all the provisions of the
statute together, unless it is impossible.
41. At first blush, the arguments of the appellants on the
basis of subsection (4) of Section 20A of the said Act may
appear to be attractive. But when subsection (4) of Section
20A of the said Act is read in harmony with clause (dc) of
Section 2 and the provisions of Sections 20C and 20D of the
said Act, we find that the submission that no construction at
all can be made in the prohibited area or the regulated area,
would be unsustainable.
42. Firstly, it is to be noted that clause (dc) of Section 2 of the
said Act itself excludes four categories as mentioned
hereinabove from the definition of “construction”. The
legislative intent is thus clear that the four categories which are
excluded from the definition of “construction” as defined in
clause (dc) of Section 2 of the said Act would not be treated as a
“construction”, wherever the said term is referred to in the
statute. The legislative intent is clear that the reconstruction,
29
repair, renovation of the existing buildings has been excluded
from the definition. Similarly, the construction, maintenance
etc. of drains, drainage works, public latrines and urinals; the
construction and maintenance of works meant for providing
supply of water to public; and construction etc. for distribution
of electricity, which could be construed to be essential services
for catering to the needs of the public at large, have consciously
been kept out of the definition of “construction”. It could be
presumed that the legislature was aware that repairs and
reconstruction of existing structures or buildings or
construction of essential facilities like public latrines, urinals,
water supply and electricity distribution for the
pilgrims/residents are basic necessities and as such, should be
permitted even in the prohibited area. If it is not so interpreted,
then Section 20C of the said Act would be rendered otiose and
redundant. It need not be emphasized that an interpretation
which leads a particular provision to be otiose or redundant or
meaningless, has to be avoided.
30
43. It could further be seen that the said position is also
clarified in the affidavit filed by the Superintending
Archaeologist, ASI before the High Court, which reads thus:
“E. While the works, such as toilets, drains,
electrical works, etc., do not fall within the
definition of ''construction", and therefore can be
carried out even in the prohibited area. Some
other works, such as the reception center, fall
squarely with the definition of "construction", and
being in the prohibited area, is not permitted.”
44. Section 20D of the said Act deals with the entire
procedure regarding grant of permission by the competent
authority within regulated area. Undisputedly, in the present
case, the competent authority has complied with the procedure
as required under Section 20D of the said Act and the
authority, i.e., the NMA has granted its permission for the
work, which is undertaken. It will be appropriate to refer to the
relevant part of the order dated 4th September 2021, passed by
the NMA, which reads thus:
“2. After examination of the case, it is stated that
the Authority has "No Objection' under assurance
31
of strict compliance of AMASR, Act, 1958. Section
2 (de), to the execution of the following works in
the prohibited area namely Cloak Room, Mini
Cloak Room, Shelter pavilion. Female Toilet, Male
Toilet, Sevayat Toilet, Electrical Room, and
Pavement area, including a place to stand in
queue for toilets and reaching sanctum sanctorum
that are permitted under the exception clause to
the definition of "Construction" as given in the
above mentioned section. In respect of the other
proposed construction works in the prohibitedareanamely Reception Centre, Information cum
Donation Kiosk, First Aid Centre, Police Service
Centre and ATM. Kiosk, it is requested that details
with regard to the facilities for the public which
are sought to he provided through these
structures to justify their location in the
prohibited area or may be relocated in the _
Regulated area. Further, it may clearly be
established with relevant details that the scale of
repair/renovation proposed to be carried out in
Bada Chhata Matha and Chhauni Matha does not
tantamount to addition/alteration or
reconstruction.”
45. Insofar as the objections in the report of the ASI is
concerned, it will be relevant to refer to the note signed by the
Director General of ASI dated 21st February 2022, which reads
thus:
“1. Shree Jagannath Temple, Puri
32
I visited the Shree Kshetra Shree
Jagannath Temple, a centrally protected
monument and the proposed area of work.
The concept plan of the State Government
aims to provide amenities and beautify the
entire environs of the temple. The proposed
amenities fall within the prohibited area of
the temple. Since these amenities are
required for the devotees, it was agreed
that this may be allowed. ASI would work
in coordination with the State Government
on the design so that there is no visual
impact on the main temple. State
Government was also requested to keep the
entire design simple in tandem with the
spiritual nature of the entire temple
complex.
One point of discussion was the
proposed Reception centre which is at a
distance of 75 metres from the temple (part
falls under the prohibited area). This
bui1ding is proposed to be used to hold
devotees before they proceed to the main
complex. Given that this would be very
essential, it was decided that the State
Government would consider options to
slightly move the building beyond 100
metres; this would also be good in the
interest of security of the temple.”
46. It could thus clearly be seen that the DirectorGeneral has
observed that the amenities which fall within the prohibited
area of the temple are required for the devotees, and therefore,
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it was agreed that this may be allowed. It was further observed
that the ASI would work in coordination with the State
Government on the design so that there is no visual impact on
the main temple. The State Government was also requested to
keep the entire design simple in tandem with the spiritual
nature of the entire temple complex.
47. In the impugned order, even the Division Bench of the
High Court has recorded the statement of the learned Advocate
General to the effect that both ASI and the State Government
would work together. Insofar the reception area is concerned,
the impugned order would also reveal that the learned Advocate
General has clarified that it will now be moved out of the
prohibited area and it will be constructed in the regulated area.
48. It will further be relevant to refer to the following extract of
the note of the DirectorGeneral of ASI, which reads thus:
“The potential of both Puri and
Ekamrakshetra to be taken up for World/
Heritage was also discussed. A brief
overview of the World Heritage guidelines
especially relating to management of buffer
34
zone and the Outstanding Universal value
of both temples was shared with them. It
was agreed that all work in both places
would be designed and executed, keeping
in mind the possibility of becoming World
Heritage Sites, going forward. The State
Government was also requested to remove
all encroachments from VaitalDeul and
Paramaguru temple which is one of the
oldest temple of Kalingan Architecture. The
issue of shifting of the kitchen of
Anantabasudev temple to another. suitable
location was also discussed.”
49. It could thus clearly be seen that even the DirectorGeneral of ASI has recognized the potential of Puri and
Ekamrakshetra for being taken up as World Heritage sites. It
was agreed that all the work in both the places would be
designed and executed keeping in mind the possibility of
developing them for being acknowledged as World Heritage
Sites.
50. The affidavit of the Superintending Archaeologist, ASI to
which we have already referred to hereinabove, would also
reveal that there does not appear to be any serious objection
with regard to construction of works such as toilets, drains and
35
electrical works in the prohibited area. There also does not
appear to be any serious objection with regard to undertaking
construction in the regulated area. The insistence is that the
construction has to be carried out after necessary permissions
are obtained from the NMA under the provisions of the said Act.
Another concern appears to be that the entire design or the
facilities should be simple, in tandem with the spiritual nature,
design and aesthetic of the entire temple complex.
51. Taking into consideration all these aspects of the matter,
it is amply clear that the construction activities which are being
undertaken, are being undertaken in pursuance of the
directions issued by a threeJudge Bench of this Court in the
case of Mrinalini Padhi (supra). The construction is being
carried out for the purpose of providing basic and essential
amenities like toilets for men and women, cloak rooms,
electricity rooms etc. These are the basic facilities which are
necessary for the convenience of the devotees at large. As
already discussed hereinabove, the legislative intent appears to
36
be clear. The legislature has deliberately excluded four
categories from the definition of “construction”. The purpose
behind it appears to be that the repairs and renovation of the
buildings, which are existing and the constructions which are
necessary for providing basic facilities like drainage, toilets,
water supply and distribution of electricity should be kept out
of the rigour of requirement of statutory permissions.
52. An argument was sought to be advanced by Shri Navare
that the said provision is only to enable a person who resides in
the prohibited area to get his existing structure reconstructed,
repaired and renovated and the said provision cannot come to
the aid of the State to create facilities for the public. Such an
argument is taken note of only to be rejected. If an individual
person can construct a toilet in a prohibited area; can the State
be denied to do so, when the State finds it necessary to do it in
the larger public interest for providing basic facilities to the
lakhs of devotees visiting the shrine? The answer is an
emphatic ‘no’.
37
53. A hue and cry was made that the construction carried out
is contrary to the Inspection Report carried out by the ASI.
However, the note of the Director General of ASI dated 21st
February, 2022 as well as the affidavit filed by the ASI before
the High Court would falsify this position.
54. It would further be relevant to note that the High Court
itself has recorded the statement of the learned Advocate
General for State of Odisha that both the ASI and the State
Government would work together to ensure that no
archaeological remains are missed out or damaged.
55. It could thus be seen that even if the appellants had any
genuine concern, the same is already taken care of in the
impugned order.
56. In spite of that, the matter was mentioned for obtaining
urgent orders before the Vacation Bench on Monday, i.e., 30th
May, 2022. Since the matter was not listed on Tuesday, i.e.,
31st May, 2022, it was again mentioned on the said date.
Again, a hue and cry was made as if heavens are going to fall if
38
the petitions were not listed. As such, the petitions were listed
on Thursday, i.e., 2nd June, 2022. We have heard the learned
counsel for the parties at length.
57. We have no hesitation in holding that the activities
undertaken by the State are completely in tune with the
directions issued by the threeJudge Bench of this Court in the
case of Mrinalini Padhi (supra). They are necessary in the
larger public interest and there is no prohibition in the statute
for doing so, as sought to be argued by the appellants.
58. We, therefore, find no merit in the contentions raised on
behalf of the appellants. We are of the considered view that the
public interest litigation filed before the High Court rather than
being in public interest, is detrimental to the public interest at
large.
59. In the recent past, it is noticed that there is mushroom
growth of public interest litigations. However, in many of such
petitions, there is no public interest involved at all. The
petitions are either publicity interest litigations or personal
39
interest litigation. We highly deprecate practice of filing such
frivolous petitions. They are nothing but abuse of process of
law. They encroach upon a valuable judicial time which could
be otherwise utilized for considering genuine issues. It is high
time that such socalled public interest litigations are nipped in
the bud so that the developmental activities in the larger public
interest are not stalled.
60. In the result, the appeals, having been found to be without
any substance, are dismissed with costs, quantified at
Rs.1,00,000/ (Rupees one lakh) each, payable by the
appellants to the respondent No.1 within four weeks from the
date of this judgment.
61. Pending application(s), if any, shall stand disposed of in
the above terms.
…….........................J.
[B.R. GAVAI]
…….........................J.
[HIMA KOHLI]
NEW DELHI;
JUNE 03, 2022.
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