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Pasture (Gochar) Land in Special Investment Region Vests in Development Authority by Operation of Law: Rajasthan High Court

Published: · NyayVidhan

A Division Bench of the Rajasthan High Court at Jodhpur dismissed a PIL against the Pali Collector's order of 16.12.2020 directing that all government lands in nine villages of Tehsil Rohat be recorded in the name of the JPMIA Development Authority. Pasture (Gochar) lands had never vested in the Gram Panchayats by virtue of an Act of the Legislature, so Section 27 of the Rajasthan Special Investment Regions Act, 2016 vested them in the Authority (paras 6.48, 6.65).

Pasture (Gochar) Land in Special Investment Region Vests in Development Authority by Operation of Law: Rajasthan High Court

Judgment Intelligence

Petition Dismissed
Papapuri & Ors. v. State of Rajasthan & Ors.
2022/RJJD/030445
D.B. Civil Writ (P.I.L.) Petition No. 5132/2021
Court
Rajasthan High Court
Date of Decision
28 April 2023
Bench
Acting Chief Justice Manindra Mohan Shrivastava and Justice Rekha Borana
Relevant Acts & Sections
Rajasthan Special Investment Regions Act, 2016 — Sections 3, 5, 6, 9, 27, 77; Rajasthan Land Revenue Act, 1956 — Sections 92, 103; Rajasthan Panchayat Act, 1953 — Sections 2(7), 88; Rajasthan Panchayati Raj Act, 1994 — Sections 2(1)(xx), 63, 124; Rajasthan Panchayati Raj Rules, 1996 — Rule 136
Final Outcome

PIL dismissed, with no order as to costs (para 6.65). The mutation of pasture lands in the Authority's favour stands. No later order in the case was listed on the High Court website on 18.10.2026.

Key holdings

  1. Gochar is land under Section 103 of the 1956 Act and falls within the Section 27(1) vesting clause unless excepted (paras 6.13-6.14).
  2. The 1960 notification kept pasture, as unculturable land, out of Panchayat vesting, and Section 124 of the 1994 Act saves it (paras 6.28, 6.47).
  3. ‘By virtue of an Act of the State Legislature’ means by the Act itself, not by rules such as Rule 136 of the 1996 Rules (paras 6.38, 6.45).
  4. Section 77 overrides the Tenancy and Land Revenue Act restrictions on diverting pasture land (para 6.51).
  5. Mere vesting breaches no sustainable-development principle where no forest or catchment land vested and equal pasture land is proposed (paras 6.54, 6.58-6.59).

Case explainer by NyayVidhan: an account of this judgment and the law it laid down, not the court's text. The judgment itself is the authoritative version.

Brief Facts

On 12.10.2020 the State declared nine revenue villages of Tehsil Rohat, District Pali, a Special Investment Region, the Jodhpur-Pali-Marwar Industrial Area, and designated RIICO as its Regional Development Authority (paras 3.5-3.6). On 16.12.2020 the Collector, Pali ordered all government lands there mutated to the Authority, and pasture lands were mutated (paras 3.7, 6.4). Villagers of Dungarpur filed a PIL, saying that Gochar, Oran and Agore lands were public-utility lands vested in the Gram Panchayats (paras 2, 4.1-4.6). The State replied that no Oran or Agore land had been mutated (para 5.1), and the rejoinder confined the challenge to pasture lands (para 6.3).

Court's Findings

Section 27(1) vests in the Regional Development Authority the land defined in Section 103 of the Land Revenue Act, 1956, which includes Gochar, but excludes land vested in a local authority by virtue of an Act of the State Legislature before 2016 (paras 6.12-6.14). Pasture is common land under Section 2(7) of the Rajasthan Panchayat Act, 1953, yet the State's notification of 22.04.1960 under Section 88 kept unculturable lands, including pasture, out of Panchayat vesting (paras 6.24-6.28). The Panchayati Raj Act, 1994 dropped statutory vesting of common lands; Rule 136 of the 1996 Rules brought it back only as subordinate legislation (paras 6.32-6.34). Applying Indramani Pyarelal Gupta, the Bench held that vesting through rules is vesting under an Act, not by virtue of one, and declined to read rules into Section 27 (paras 6.36-6.45). Section 124 of the 1994 Act also saved the 1960 notification (para 6.47). Section 77 overrides the tenancy and land revenue restrictions (para 6.51). The sustainable-development plea rested on an incorrect premise: no Oran or Agore land was mutated, and equivalent pasture land is proposed to be set apart (paras 6.54, 6.59). Rulings on encroachment or allotment to private persons were distinguished (paras 6.61-6.64).

Legal Principle

Under Section 27(1) of the Rajasthan Special Investment Regions Act, 2016, only land vested in a local authority by virtue of an Act of the State Legislature escapes vesting in the Regional Development Authority. Vesting through rules framed under an Act does not qualify, so pasture land vests in the Authority (paras 6.38, 6.45, 6.48).

Precedents Relied Upon

  1. Chattar Singh & Others v. Madho Singh (Dead) & Others (2019) 16 SCC 262
    Relied Upon Discussed at ¶ 6.19, 6.24

    Land recorded as 'charnoi' (reserved for grazing of the villagers' cattle) is common land; relied on for reading pasture land into 'common land'.

  2. Sharad Kumar Dwivedi v. State of U.P. & Others Public Interest Litigation (PIL) No. 7472 of 2021, decided on 05.07.2022 (Allahabad High Court)
    Referred To Discussed at ¶ 6.20

    Land recorded as 'Jangal Dhak' was held to be forest land and public utility land.

  3. State of Jharkhand & Others v. Tata Steel Limited & Others (2016) 11 SCC 147
    Relied Upon Discussed at ¶ 6.22, 6.24

    Words in a statute must prima facie be given their ordinary meaning; plain and unambiguous words are applied as they stand.

View all precedents (32)
  1. Subramanian Swamy v. Union of India, Ministry of Law & Others (2016) 7 SCC 221
    Relied Upon Discussed at ¶ 6.23, 6.24

    Explains the rule of noscitur a sociis as a rule of construction.

  2. Dr. Indramani Pyarelal Gupta & Others v. W.R. Nathu & Others AIR 1963 SC 274
    Applied Discussed at ¶ 5.4, 6.35, 6.36, 6.38

    'By' an Act means a provision directly enacted in the statute; 'under the Act' covers what subordinate law-making authorities do; applied to hold that vesting by Rule 136 of the 1996 Rules is not vesting by virtue of an Act.

  3. C.V. Raman etc. etc. v. Management of Bank of India & Another AIR 1988 SC 1369
    Relied Upon Discussed at ¶ 6.38

    The Supreme Court refused to substitute 'of' for 'under'; cited for the rule that words are not added to a statute.

  4. The Vishnu Pratap Sugar Works (P) Ltd. v. The Chief Inspector of Stamps, U.P. AIR 1968 SC 102
    Relied Upon Discussed at ¶ 6.40, 6.41

    A statute is the edict of the legislature, distinct from a statutory instrument by which a rule-making power is exercised.

  5. Municipal Council, Palai through the Commissioner of Municipal Council, Palai v. T.J. Joseph AIR 1963 SC 1561
    Relied Upon Discussed at ¶ 6.42, 6.45

    The legislature enacts laws with complete knowledge of the existing laws on the same subject.

  6. Lafarge Umiam Mining Private Limited, T.N. Godavarman Thirumulpad v. Union of India & Others (2011) 7 SCC 338
    Relied Upon Discussed at ¶ 5.7, 6.60

    Decisions on the use of natural resources are tested on judicial-review principles, including sustainable development; relied on by the State and quoted by the Court on the sustainable-development plea.

  7. Jagpal Singh & Others v. State of Punjab & Others (2011) 11 SCC 396
    Distinguished Discussed at ¶ 4.5, 6.61

    Gram Sabha land must be kept for the villagers and encroachments removed; distinguished as a case of encroachment, not vesting by operation of law.

  8. Gulab Kothari v. State of Rajasthan & Others D.B. Civil Writ Petition No. 1554/2004 & connected matters, order dated 12.01.2017
    Distinguished Discussed at ¶ 4.5, 5.4, 6.62

    The power to change the classification of pasture land must be exercised sparingly in the larger public interest; distinguished because the pasture land here vested by operation of law in an authority constituted for public interest.

  9. T.N. Godavarman Thirumulpad v. Union of India & Others Order dated 12.03.2014 in I.A. Nos. 2143 with 2283 and other IAs in Writ Petition (Civil) No. 202 of 1995
    Distinguished Discussed at ¶ 4.5, 6.63

    Relied on by the petitioners on the premise that Oran (forest) land had been transferred; that premise was found incorrect.

  10. Centre for Public Interest Litigation & Others v. Union of India & Others (2012) 3 SCC 1
    Distinguished Discussed at ¶ 4.5, 6.64

    A case on the allotment of spectrum on a first-come-first-served basis; held to have no application.

  11. Jitendra Singh v. Ministry of Environment & Others Civil Appeal No. 5109 of 2019, decided on 25.11.2019
    Referred To Discussed at ¶ 4.7, 6.64

    Allotment of village ponds to private industrialists was declared illegal; protection of village commons safeguards Article 21 rights.

  12. Hinch Lal Tiwari v. Kamala Devi & Others Civil Appeal No. 4787 of 2001, decided on 25.07.2001
    Distinguished Discussed at ¶ 4.7, 6.64

    Pond land vested under the U.P. Zamindari Abolition Act could not be allotted for construction; distinguished as a case of allotment to private persons, not statutory vesting.

  13. Rameshbhai Virabhai Chaudhari v. The State of Gujarat & Others Civil Appeal No. 5135 of 2021 (arising out of SLP (Civil) No. 14222/2019), decided on 06.09.2021
    Referred To Discussed at ¶ 4.5, 6.64

    Use of Gochar land contrary to its permissible use, by the State or a third party, cannot be allowed.

  14. Association for Environment Protection v. State of Kerala & Others (2013) 7 SCC 226
    Distinguished Discussed at ¶ 4.5, 6.64

    A riverbank hotel construction contrary to a government order; held not to help the petitioners.

  15. State of Jharkhand & Others v. Pakur Jagran Manch & Others (2011) 2 SCC 591
    Distinguished Discussed at ¶ 4.5, 6.64

    De-reservation of Gochar only in exceptional circumstances and by the prescribed procedure; distinguished as no de-reservation under the 1955 or 1956 Act was involved.

  16. Prem Singh & Others v. State of Rajasthan & Others S.B. Civil Writ Petition No. 5078/2007, decided on 02.07.2019
    Distinguished Discussed at ¶ 4.7, 6.64

    Allotment of charagah land for a nursing college was upheld; distinguished as the present case is one of vesting by operation of law.

  17. State of U.P. v. Smt. Sarjoo Devi & Others Civil Appeal No. 2334 of 1968, decided on 27.07.1997
    Distinguished Discussed at ¶ 4.7, 6.64

    Reliance held misplaced in law and on facts.

  18. Suo Motu v. State of Rajasthan S.B. Civil Writ Petition No. 11153/2011, decided on 29.05.2012
    Distinguished Discussed at ¶ 4.7, 6.64

    Protection of water reservoirs and catchment areas; no catchment area had vested or been transferred here.

  19. Jetha Ram & Others v. State of Rajasthan & Others D.B. Civil Writ Petition (P.I.L.) No. 8816/2011, decided on 16.05.2012
    Referred To Discussed at ¶ 4.5, 6.64

    Mining activities on pasture land were held impermissible.

  20. Kanti Lal v. State of Rajasthan & Others D.B. Civil Writ No. 7509/2016, decided on 13.11.2018
    Distinguished Discussed at ¶ 4.7, 6.64

    Traditional village water sources must be protected; no application as no water body had vested or been transferred.

  21. Kalyan Singh & Others v. State of Rajasthan & Others D.B. Special Appeal (Writ) No. 51/2020 & batch of appeals, decided on 29.06.2021
    Referred To Discussed at ¶ 4.7, 6.64

    Allotment of public utility land to a private company was held illegal.

  22. Jal Grahan Vikas Sanstha v. State of Rajasthan & Others D.B. Civil Writ Petition No. 8472/2021
    Distinguished Discussed at ¶ 4.7, 6.64

    Allotment of plots reserved as talab to private respondents; held not to aid the petitioners.

  23. Shambhu Ram v. State of Rajasthan & Others D.B. Civil Writ Petition No. 10457/2018, decided on 01.04.2021
    Distinguished Discussed at ¶ 4.7, 6.64

    Encroachment on Gair Mumkin Agore (water catchment) land; held of no help.

  24. Balu Ram v. State of Rajasthan & Others S.B. Civil Writ Petition No. 5108/2020, decided on 06.04.2021
    Referred To Discussed at ¶ 4.7, 6.64

    Tenancy rights cannot accrue in a catchment area (Gair Mumkin Johad), relying on Section 16 of the 1955 Act.

  25. Bhanwar Singh v. The State of Rajasthan & Others D.B. Civil Writ Petition No. 15150/2021, decided on 09.02.2022
    Distinguished Discussed at ¶ 4.7, 6.64

    A challenge to orders and circulars regularising unauthorised occupants; reliance held misplaced on facts.

  26. Suraj Bhan & Others v. Financial Commissioner & Others (2007) 6 SCC 186
    Referred To Discussed at ¶ 5.4

    Cited by the Advocate General: jamabandi entries do not confer title.

  27. Rajinder Singh v. State of Jammu & Kashmir & Others (2008) 9 SCC 368
    Referred To Discussed at ¶ 5.4

    Cited by the Advocate General with Suraj Bhan: revenue records do not confer title.

  28. Gulab Chand & Others v. State of Rajasthan & Others 2007 (2) ILR (Raj.) 633
    Referred To Discussed at ¶ 5.4

    Cited by the Advocate General for the submission that there is no absolute bar against transfer of Gochar land.

  29. Shri Rajasthan Gau-Seva Samiti v. State of Rajasthan D.B. Civil Writ Petition No. 326/2022 and connected petition, order dated 28.04.2022
    Referred To Discussed at ¶ 5.6

    Placed by the Advocate General: the earlier restraint on altering Gochar entries was modified to require strict adherence to the rules for any regularisation.

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