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INTHEHIGHCOURTOFJUDICATUREATBOMBAY
CIVILAPPELLATEJURISDICTION

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PUBLICINTERESTLITIGAIONNO.173OF2010
ALONGWITH
CIVILAPPLICATIONNO.124OF2014

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Dr.MaheshVijayBedekar.
Versus
TheStateofMaharashtra&Ora.

..

..

Petitioner

Respondents

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...........
Mr. S. M. Gorwadkar, Senior Advocate, a/w Mr.S.H. Gangal and Mr.R.
G.ShindeforthePetitioner.
Mr.V.S.Gokhale,AGP,fortheRespondentNos.1(a)to1(d).
Dr.SadhanaMahashabdefortheRespondentNo.1(e).
Mr.R.S.Apte,SeniorAdvocate,i/b.Mr.N.R.BubnafortheRespondent
No.2.
Mr.D.A.DubefortheRespondentNo.3(UnionofIndia).
Ms.TruptiPuranikfortheRespondentNo.11.
...........

CORAM:A.S.OKAAND
REVATIMOHITEDERE,JJ.
DATE:24thJUNE2015.

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P.C.:

Adetailedadinterimorderwaspassedon13 thMarch,2015

bythisCourtafterrecordingdetailedreasons.Theadinterimorderpassed
inthemainwritpetitionisinparagraph9ofthesaidjudgmentandorder
dated 13th March, 2015 and the interim order passed in the Civil
Applicationhasbeenincorporatedinparagraph35ofthesaidorder.The
saidorderintermsofparagraph9governstheexerciseofpowersunder
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Section 234 of the Maharashtra Municipal Corporations Act, 1949(for

shortthesaidActof1949)andSection317oftheMumbaiMunicipal

2]

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CorporationsAct,1888(forshortthesaidActof1888)

As far as interim order in Civil Application is concerned,

various directions were issued to the State Government. The said

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directionswereissuedessentiallyforimplementationoftheprovisionsof
theNoisePollutionRulesandthevariousdirectionsissuedbytheApex

Courtfromtimetotimewhicharebindingonallconcernedincludingthe
State Government. It is not necessary for us to reproduce elaborate
interimdirectionscontainedinparagraph35ofthesaidorder.Clause(ii)

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of paragraph 35 provides for creating appropriate grievance redress

mechanism for receiving complaints in accordance with the Noise

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PollutionRules. Clause(iv)directstheStateGovernmenttonotifythe
namesandaddressesandallparticularsoftheauthoritiesundertheNoise

Pollution Rules and the Rules framed under the said Act of 1951.
Adequatepublicity wasorderedtobegiveninthemannerprovidedin
clause(iv).Clause(v)directstheStateGovernmenttosetupagrievance
redress mechanism within the limits of each Municipal Corporation in
termsofclause(ii)ofparagraph35withinaperiodoftwomonthsfrom
13th March, 2015. One of the directions was to ensure that modern
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equipment is provided to all concerned authorities to enable them to

3]

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ascertainthenoiselevel.

Today, an affidavit has been filed by Shri Sunil Jaikumar

Sovitkar,DeputySecretary,HomeDepartment,Mantralaya.Goingbywhat
isstatedinthesaidaffidavit,onlyinferencewhichcanbedrawnisthat

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

directionsinthesaidorderandinparticulardirectionsinparagraph35of

theorder.AllthattheHomeMinistryhasdoneistowritealetterdated
18thJune,2015tothePrincipalSecretaryoftheRevenueDepartment,the
Principal Secretary of the Urban Development Department and the

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PrincipalSecretaryofEnvironmentalDepartmentinvitingattentionofthe
respectiveSecretariestothedirectionsissuedbythisCourt. Thus,the

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

bythisCourtwereforimplementationoftheRulesframedtopreventthe
NoisePollution.ThedirectionsweretoensurethattheordersoftheApex
Court are implemented. We are constrained to observe that the State
Governmenthastakenthesaiddirectionsverycasually.Asstatedearlier,
the State Government has taken up more than two months only for
bringing the said directions to the notice of the Secretaries of the
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concerneddepartments.Thereisanoncompliancewithpracticallyevery
direction.Therefore,proceedingsundertheContemptofCourtAct,1971

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will have to be initiated against the Government officers who are

responsible for committing the breach of this direction issued by this
Court.WedirecttheofficeoftheGovernmentPleadertosupplyacopyof
theorderdated13th March, 2015andacopyofaffidavitofShriSunil

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JaikumarSovitkartotheChiefSecretaryoftheStateGovernment. The
ChiefSecretaryoftheStateGovernmentshallascertainthenamesofthe

officerswhoareresponsibleforcommittingtheflagrantviolationofthe
directionsissuedbythisCourt.Withinaperiodoftwoweeksfromtoday,
anaffidavitshallbefiledbyhimsettingoutthenamesanddesignationsof

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theofficerswhoareresponsibleforthebreachesoftheorderofthisCourt.
Aftersuchaffidavitisfiled,necessaryproceedingswillbeinitiatedunder

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theContemptofCourtsAct,1971againsttheerringGovernmentOfficials.

4]

Now,weturntotheadinterimreliefgrantedinthePIL.The

Paragraphs9and10oftheorderdated13thMarch,2015readthus:
9. Therefore,bywayofadinterimrelief,wedirectthatthe
discretionarypowerunderthesection234tograntpermission
toerecttemporaryboothsorsimilarstructuresonstreetson
account of festivals shall be exercised by the Commissioners
subjecttoaforesaidconstraintssetoutinparagraph8above.
WealsodirecttheMunicipalCorporationstoframeapolicyfor
dealingwithgrantofsuchpermissionsinthelightofwhatwe
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haveheldabove. Thepolicyshallbeframedintwomonths
fromtoday.WealsodirecttheMunicipalCorporationstotake
immediate action of demolition in respect of the temporary
booths/platformsorsimilarstructureserectedonpublicstreets
withoutobtainingtherequisitepermissionundersection234.
Such action shall be taken before the religious
festivals/functionsareover.Wealsodirectthatwheneversuch
permissions are granted, a condition shall be incorporated
therein of prominently displaying the particulars of such
permissions on the temporary booths or similar structures
coveredbysection234ofthesaidActof1949.

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10. Several photographshavebeenannexedtothepetition

showingthatforcelebrationofNavratriFestivals,important
roads in the City of Thane were completely blocked. This
affectsthefundamentalrightsofthecitizens.Thisalsoaffect
trafficofemergencyvehiclesandambulancesplyingonpublic
streetsapartfromthefactthatsuchactivitiesinvolvepublic
nuisance covered by section 133 of the Criminal Procedure
Code,1973(forshortCr.P.C.).Thereisnoreplyfiledbythe
State Government on this aspect. We direct the State
GovernmentandalltheMunicipalCorporationstofileareply
even on this aspect. Appropriate directions will have to be
issuedonthisaspectafterreplyisfiled.
Thus, it was directed that the discretionary power under

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5]

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

temporary booths or similar structures shall be exercised by the

Commissionerssubjecttotheconstraintssetoutinparagraph8ofthesaid
order.Theparagraph8ofthesaidorderreadsthus:
8. The Section 234 does not confer absolute power.The
power conferred on the Commissioner is discretionary. The
power cannot be exercised without the concurrence of the
CommissionerofPoliceortheSuperintendentofPolice,asthe
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casemaybe.Theexerciseofpowerwithouttheirconcurrence
willbebadinlaw.Itisobviousthatapermissionunderthe
provision cannot be granted if the temporary erection of
boothsorsimilarstructuresislikelytoaffectfreemovement
of vehicular traffic. Permission to erect booths on the
footpathsorfootwaycannotbegrantedifthesameislikely
to obstruct free movement of the pedestrians. It is obvious
that the discretion cannot be exercised by granting
permissionstoerectboothsorlikestructuresonaverybusy
public streets having a large vehicular traffic. It cannot be
exercisedinrelationtofootpathsinlocalitieshavingalarge
populationandinrespectoffootpathsinthelocalitieswhich
areverycrowded.Thepowercannotbeusedinrelationto
publicstreetsincludingfootpathsorfootwaysnearRailway
stations/publicbusstands/majorautorickshawortaxistands.It
followsthatsuchpermissionscannotbegrantedifthegrantof
such permissions is likely to result into a major traffic
congestionorislikelytocause obstructiontolargenumberof
pedestriansintheuseoffootway.Suchpermissionscannotbe
granted on streets or foot ways in the vicinity of major
hospitalsandeducationalinstitutions.Thesecasesaresetout
onlybywayofillustrations.Thisisnottheexhaustivelistof
footpathsandstreetsinrelationtowhichthediscretionary
powershouldnotbeexercised.Whileexercisingthediscretion
underthesaidsection,the CommissioneroftheMunicipal
Corporationsshallconsiderallsuchrelevantfactors.

6]

WhatisheldbythisCourtisthatthepowervestinginthe

MunicipalCommissionerbothunderthesaidActof1949andthesaidAct
of1888tograntpermissionfortemporaryerectionofboothsorsimilar
structurescannotbeexercisediftheconstructionofbooths/structureson
thestreetsoronfootpaths/footwaysislikelytoobstructfreemovement
oftrafficorfreemovementofpedestrians.

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ThisCourtbyJudgmentandorderdated20 th May,2015in

SuoMotuPILNo.71of2013heldthus:

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9. Aspointedoutearlier,bythejudgmentandorder
dated31stAugust,2006thisCourthasalreadyheldthat
therighttohaveroadsinreasonableconditionisapart
ofthefundamentalrightguaranteedunderArticle21of
theConstitutionofIndia. Thus,theDivisionBenchhas
placedtherightofcitizenstohavepotholefreeroadsin
reasonable condition on the highest pedestal of
fundamentalrightsunderArticle21oftheConstitutionof
India. Existence of such fundamental right creates
correspondingobligationinalltheauthoritieswhichare
State within the meaning of Article 12 of the
Constitution of India. For the infringement of the
fundamental right guaranteed under Article 21 of the
ConstitutionofIndia,acitizencandemandcompensation
apart from seeking the enforcement of the right.
Moreover, a citizen has a right to make grievances
regarding the violation of such right and get the
grievancesredressed.
(underlinesupplied)

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

conditionisafundamentalrightofthecitizens.ThisCourthasheldthat
thedefinitionofstreetsundertheMunicipalLawsincludesfootpathsor
footways. Thus,thisCourthasheldthatthe righttohave roadsand
footpathsorfootwaysinareasonableconditionisafundamentalright.It
isapartofArticle21oftheConstitutionofIndia.Itisobviousthatwhile

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exercisingpowerunderSection234ofthesaidActof1949andSection
317ofthesaidActof1888,theMunicipalCommissionersshallbebound

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ensurethatthisfundamentalrightavailabletothecitizensisnotviolated.
TheCommissionersareboundtoconsiderthefactthattheroadsexistfor
vehiculartrafficandthefootpathsaremeantfortheuseofpedestrians.

Thereisanotheraspectofthematter.ThisCourthasalreadynoted

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8]

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

structuresareerectedonroadsandfootpathsmainlyforcelebrationof
Ganpati,Navratriandotherreligiousfestivals.ThisCourtisconsciousof
thefundamentalrightsconferredbyArticle25oftheConstitutionofIndia

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oneverycitizen.However,thescopeoftherightsconferredbyArticle25
hasbeenexplainedbytheConstitutionBenchoftheApexCourtinthe

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case of Dr. M. Ismail Faruqui etc. V/s. Union of India 1 It will be

necessarytomakeareferencetowhatisheldinparagraph80and81of

thesaiddecisionwhichreadthus:
80. ItmaybenoticedthatArticle25doesnotcontainany
referencetopropertyunlikeArticle26oftheConstitution.The
right to practice, profess and propagate religion guaranteed
under Article 25 of the Constitution of does not necessarily
include the right to acquire or own or possess property.
Similarlythisrightdoesnotextendtotherightofworshipat
anyeveryplaceofworshipsothatanyhindrancetoworshipat
aparticularplaceper semayinfringethereligiousfreedom

1 AIR 1995 SC 605

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guaranteedunderArticles25and26oftheConstitution.The
protectionunderArticles25and26oftheConstitutionisto
religiouspracticewhichformsanessentialandintegralpartof
thereligion.Apracticemaybeareligiouspracticebutnotan
essentialandintegralpartofpracticeofthatreligion.
Whileofferofprayerorworshipisareligious practice,
itsofferingateverylocationwheresuchprayerscanbeoffered
would not be an essential or integral part of such religious
practiceunlesstheplacehasaparticularsignificanceforthat
religion so as to form an essential or integral part thereof.
Placesofworshipofanyreligionhavingparticularsignificance
forthatreligion,tomakeitanessentialorintegralpartofthe
religion,standonadifferentfootingandhavetobetreated
differentlyandmorereverentially.
(underlinessupplied)
WhatisheldbyApexCourtcanbesummarizedasunder:

9]

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81.

Therightto practice,professandpropagatereligion

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(a)

guaranteedunderArticle25oftheConstitutiondoes
not extend to worship at every and any place of

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worship. The protection under Article 25 of the

Constitutionistoreligious practicewhichformsan
essentialandintegralpartofareligion;and

(b)

The offer of prayer or worship may be a religious

practicebutitsofferingateverylocationwheresuch
worshipcanbemadeisnotanessentialandintegral
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part of religion unless the particular place has a

particularsignificanceforthatreligionsoastoform

10]

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anessentialandintegralpartofthatreligion.

Therefore,theMunicipalCommissionerswhileexercisingthe

powerunderSection317ofthesaidActof1888andSection234ofthe

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saidActof1949,inadditiontotheconstraintswhichareincorporatedin
paragraph8oftheorderdated13 thMarch,2015willhavetoensurethat

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

reasonable condition is not violated. We may reiterate here that the
denialofpermissiontoerecttemporaryboothsoranyotherstructurefora

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temporaryperiodonpublicstreetsorfootpathsorfootwaysforholding
anyreligiousfunctionorreligiousfestivalofallreligionswillnotamount

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totheinfringementofthefundamentalrightsguaranteedunderArticle25
oftheConstitutionofIndiaunlessitisshownthatthestreetorfootpathin

questionhasaparticularsignificanceforthatreligionsoastoforman
essentialandintegralpartthereof.

11]

Unfortunately, none of the Municipal Corporations have

chosentocomplywithdirectionsissuedundertheorderdated13 thMarch,
2015 by framing a policy. At this stage, the learned Senior Counsel
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representingtheMunicipalCorporationoftheCityofThanehasplacedon
record a copy of the order dated 17th August, 2011 passed by the

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CommissionerofthesaidMunicipalCorporationlayingdownthepolicy
forexerciseofpowersunderSection234.Clause(2)ofthepolicyshows
thattheMunicipalCommissionerisunderanimpressionthatifthebooths
orstructuresdonotcovermorethan1/3rdwidthoftheroad,itwillnot

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causeanyobstructiontothetraffic.Thesaidapproachiserroneous.The
policyincorporatedinthesaidorderisnotconsistentwiththeadinterim

12]

orderdated13thMarch2015.

Atthisstage,thelearnedSenior Counselappearingforthe

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petitionerhastenderedacopyofareportdated24 thJune,2015prepared
byAwaazFoundation,anenvironmentalNGOspecializinginantinoise

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pollution.ItispointedoutthatthesaidNGOhasmeasurednoiselevels
duringreligiousfestivalseveryyearsince2003.Itispointedoutthatthe

secondhighestdecibel levelswerefromtruckscarryinggeneratorsand
wallofloudspeakersplayingmusicduringGanpati,IdeMiladandMahim
Fair. It is stated that noise pollution from brass instruments including
cymbals (tasha) without amplification reaches a level of 121.4 dB and
emitaveryshrilldisturbingsound.Thenoisepollutionfromlargeplastic
membranedrumsandbanjosamplifiedwithloudspeakersreacheslevelof
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125db.Itisstatedthatsingleandserialfirecrackersusedinprocessions
measure up to 125db. Along with the said report, a report on noise

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pollutionlevelsduringIdeMiladon4thJanuary,2015aswellasareport
onnoisepollutionlevelsinMumbaion10thdayofGanpatifestivalof2014
havebeenenclosed.Detailsofthenoisepollutionlevelsonotherreligious
festivalssuchasMahimFairetc.arealsoproduced.Thesereportsshow

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alarmingsituation.Copiesofthesaidreportshavebeensuppliedbythe
learnedSeniorCounselappearingforthepetitionertoalltheconcerned

respondentsincludinglearnedAGP.Inthecontextofwhatisstatedinthe
saidreport,thecompletefailureoftheStateGovernmenttocomplywith

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thedirectionsofthisCourtbecomesveryserious.

13]

WedirectthelearnedAGPtoprovidecopiesofthereportsto

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theChiefSecretaryoftheStateGovernmentalongwiththecopiesofthe
orderandaffidavitasdirectedabove. Thereportswillhavetobedealt

withatthetimeofnexthearing.

14]

Oneissueisregardingthegrantofpermissionsinexerciseof

the statutory powers. The other issue is regarding the temporary

booths/structures erected for religious festivals without obtaining the
permissionoftheCommissioner.Allconcernedwillhavetoensurethatno
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suchtemporarybooths/structuresareerectedwithoutobtainingavalid
permissionoftheMunicipalCommissioner.Hence,weproposetodirect

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theDistrictCollectorstoconstituteateamofRevenueofficersnotbelow
the rank of Tahsildarsto visit all the concerned Municipal Corporation
areasduringtheperiodof7dayspriortoallmajorreligiousfestivalsand
during the period of major religious festivals with a view to ascertain

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whetheranysuchtemporarybooths/structureshavebeenerectedwithout
permissionoftheMunicipalCommissioner.Themembersoftheteamso

appointed by the Collectors shall report directly to the concerned

Municipal Commissioner about any such illegal erection of temporary
booths/structurestoenabletheMunicipalCommissionertotakeactionof

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removal immediately. It is obvious that while granting permission for

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

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incorporatedofprominentlydisplayingacopyofthepermissionaswellas
theparticularsofthepermissiononthetemporaryboothserectedonthe

basisofthepermissions.

15]

Hence,forthereasonsrecordedinthisorderandthereasons

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

order:

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Theadinterimreliefgrantedintermsofparagraph9of

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(i)

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the order dated 13th March, 2015 shall continue to

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operate with further modifications and clarifications

madebythisorder;

(ii) Wedirectthatthediscretionarypowersunderthesection

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234ofthesaidActof1949andSection317ofthesaid
Act of 1888 to grant permission to erect temporary

booths or similar structures on public streets(including

footpaths/footways)forholding offestivals/ceremonies
shall be exercised by the Commissioners subject to

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aforesaidconstraintssetoutinparagraph8oftheorder
dated 13th March 2015 which we have reproduced in

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paragraph 5 above. We also direct the Municipal

Commissionerstoframeapolicyfordealingwithgrantof
suchpermissionsinthelightofwhatwehaveheldinthis
orderandtheorderdated13th March2015. Thepolicy
shall be framed within a period six weeks from today
whichshallbeplacedonrecordalongwithanaffidavit.
We also direct the Municipal Corporations to take
immediate action of demolition in respect of the
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temporary booths/ structures erected on public streets

withoutobtainingtherequisitepermissions.Suchaction

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shallbetakenbeforethereligiousfestivals/functionsare

concluded. We also direct that whenever such

permissions are granted, a condition shall be
incorporatedthereinofprominentlydisplayingacopyof

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permission and the material particulars of such

permission on the temporary booths or structures

covered by section 234 of the said Act of 1949 and

Section317ofthesaidActof1888.

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

said Act of 1949 and Section 317 of the said Act of
1888,theCommissionersoftheMunicipalCorporations

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shallbeboundtoensurethatthefundamentalrightof
citizenstohaveroadsandfootpathsand/or footways

inareasonableconditionwhichisguaranteedbyArticle
21oftheConstitutionisnotviolated;

(iv)

While exercising power, the commissioners shall have

dueregardtothelawlaiddownbytheApexCourtin

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paragraph80and81inthecaseofDr.M.IsmailFaruqui
etc. V/s. Union of India which holds that the

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fundamentalrightguaranteedunderArticle25doesnot

extendto worshipatanyandeveryplaceunlessthe
placehasaparticularsignificanceforthatreligionsoas

(v)

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toformessentialandintegralpartofreligion;

WedirecttheDistrictCollectorsofalltheDistrictsinthe

StatetoconstituteateamofRevenueOfficersnotbelow
therankofTahshildarsforeachCorporationarea.The
membersof the team shall visit the areaswithin the

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limits of the Municipal Corporation periodically for a

periodof7daysbeforethedateofcommencementof

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themajorreligiousfestivalsandduringthefestivalsto
ascertainwhetheranytemporarybooths/structureshave
beenerectedonpublicstreetsandfootpaths/footways
without obtaining permission of the Municipal
Commissioners. Any such structure which does not
displaythepermissionandmaterialdetailsthereofshall
bedeemedtobeillegal.Themembersoftheteamshall
under an obligation to bring to the notice of the
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MunicipalCommissioners,thetemporaryboothserected
onstreetsandfootpathsorfootwayswithoutobtaining

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permission of the Commissioners. The Municipal

Commissionersshallforthwithtakeactionofremovalon
thebasisofsuchinformation;

If any such illegal activities involve public nuisance

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(vi)

covered by section 133 of the Code of Criminal

Procedure, 1973, necessary action shall be taken in

accordancewithlawbyalltheconcernedauthorities;

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(vii) Wemakeitclearthatthisorderaswellastheearlier
order shall apply to festivals/ceremonies of all the

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religions;

(viii)WedirecttheStateGovernmenttoissuedirectionstoall
theDistrictCollectorsandMunicipalCorporationsinthe
lightofthelawlaiddownbythisCourtinthisorder.
Complianceshallbemadewithinaperiodofonemonth
fromtoday;

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

MunicipalStafforthemembersoftheteamconstituted

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bytheCollectorsneedpolicehelpandprotectionforthe
implementationofthisorderortheimplementationof
theprovisionsoflaw,onanapplicationbeingmadeby
them,allconcernedlocalpolicestationshallforthwith

The Civil Application No.124/2014 shall be placed on

(x)

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provideadequatepoliceprotectiontothem;

boardon3rdJuly,2015.Onthatday,appropriateorder
shall be passed in the light of affidavit which will be

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filedbytheChiefSecretaryoftheState.Interimorders

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passedthereonshallcontinuetillfurtherorders;

(xi)

ThoughnoneoftheMunicipalCorporationshavefiled
affidavits in terms of the earlier order, by way of
indulgence,wegranttimetoMunicipalCorporationsto
fileaffidavitstill2ndJuly,2015.

(REVATIMOHITEDERE,J.)

(A.S.OKA,J.)

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