1. By this petition under Art. 226 of the Constitution, the petitioner has prayed for a writ of certiorari quashing the order dated 10-3-1977 passed by the Board of Revenue in a suit under S. 209 of the U.P.Z.A and L.R, Act (hereinafter referred to as the Act) filed by the petitioner along with Om Prakash for ejectment of respondents 4 and 5 from plot Nos. 11/6/4 area about 23 bighas situate in village Pandri Jagir, Pargana Richa, Tahsil Baheri, District Bareilly. The suit was filed by making allegations that plaintiff purchased the land from Hari Raj Singh by sale deed dated 22-6-1966 and came in possession over the land and continued in possession peacefully, but respondents 4 and 5 i.e, defendants 1 and 2 took possession otherwise then in accordance with law and against the consent of the petitioner in 1375F. The relief for damages was also claimed. Respondents 4 and 5 contested the suit alleging that the plaintiffs were not bhumidhars and the sale deed was illegal and the land was not identifiable on the spot and that the defendants were not trespassers, rather they have acquired sirdari rights. It may also be stated that the defendants did not take any objection about the validity of the notice under S. 80, C.P.C
2. The State Government, however, filed a separate statement denying the plaintiffs claim and also took an objection that notice under S. 80, C.P.C, was not given to or served on the State and that the suit was not maintainable. The trial Court framed issue 1 on the ground whether plaintiff had served notice on the State and in case notice has not been served what is its effect. This issue was, however, replied to the effect that although the State Government has filed the written statement but it did not contest the matter further and hence the validity of the notice under S. 80, C.P.C, does not have any effect on the case. The suit was on merits decreed by the judgment and order dated 29-9-1972.
3. Respondents 4 and 5 preferred a first appeal which was dismissed as regards the other points, but it was held that notice under S. 80, C.P.C was mandatory and on account of the absence of the notice the suit was defective and liable to be dismissed under O. 7, R. 11-D, Civil P.C In this view of the matter the appeal was allowed and the suit of the petitioner was dismissed. The second appeal filed by the petitioner also failed. It is against the judgment of the Board of Revenue dated 10-3-1977 and of the Additional Commissioner dated 18-6-1973 that the present petition has been filed.
4. Sri N.S Singhal appearing for the petitioner has urged that even though the State of U.P was made a party and has filed written statement making objection that no notice was served on the State, but the State did not lead any evidence in support of the plea taken in the written statement. As regards want of notice under S. 80, C.P.C, it was decided by the trial Court on issue 1 that the State did not contest the suit after filing written statement hence the want of proper notice under S. 80, C.P.C, cannot be taken by respondents 4 and 5 particularly when the State of U.P has been made a party to the petition, but it has chosen not to contest the petition. The learned counsel further urged that even though the provision of delivering notice and serving the same on the State as contemplated by S. 80, C.P.C, may be mandatory, but the State has chosen not to lead any evidence and absented after filing the written statement, hence it has waived the notice under S. 80, C.P.C, and that objection cannot be taken by respondents 4 and 5. He relied upon Nirjhin Kumar v. Gram Samaj, 1980 Rev Dec 164 : (1980 UPLT NOC 98) a single Judge decision of this Court where it has been held that where the State of U.P did not take the plea about want of notice before the trial court and the suit was decreed ex parte against the State of U.P and no appeal was filed by the State before the lower appellate court. Hence in the circumstances the plea in regard to want of notice has been waived by the State of U.P and now it was not open to the State of U.P or Gram Samaj to take up this plea at the second appellate stage. He further relied upon Banarsi Ram's case, 1964 All LJ 237 and Gaja v. Das Koery, 1964 All LJ 969 : (AIR 1964 ALL 471) and also reliance was placed on Ishtiyaq Husain v. Zafrul Islam, AIR 1969 All 161 and also reliance was placed on District Board, Banaras v. Churhu Rai, AIR 1956 All 680 and also reliance was placed on Vellayan v. Madras Province, AIR 1947 PC 197. He further relied upon a judgment dated 19-7-1976 in Writ Petition No. 789 of 1972, Kabul Singh v. Board of Revenue (decided by Hon'ble Mr. Justice Banerji) relying upon the relevant authorities pertaining to the want of notice under S. 80, C.P.C, it was held that the State Government or the public authority in whose favour the notice can be given can very well choose to waive the notice and it is not open to private parties to raise that objection. It is open to the party protected by S. 80, C.P.C, to waive his rights and the waiver binds the rest of the parties.
5. Sri Shripat Narain Singh, appearing for the respondents urged that the service of notice on the State was mandatory as in a suit under S. 209, U.P.Z.A and L.R Act, the State of U.P was a necessary party in view of the provisions of S. 209(2) as amended by U.P Act No. XXI of 1961. He relied on the State of Madras v. C.P Agencies, AIR 1960 SC 1309, Gangappa Gurupaddappa Gugwad v. Rachawwa, (1970) 3 SCC 716 : AIR 1971 SC 442, Dhian Singh Shobha Singh v. Union of India, AIR 1958 SC 274 and also on Shanti Pada Ganguli v. Union of India, AIR 1976 Patna 74.
6. I have considered the arguments advanced by the counsel for either side. In District Board, Banaras v. Churhu Rai (AIR 1956 All 680) (supra), a Division Bench of this Court has held that it is always open to a defendant for whose benefit notice prescribed by law to waive it and as such if a plea in regard to the want of notice was not pressed in the trial Court nor the same was raised in the first or second appeal, it would be deemed that the same has been waived. Similar view has been taken in Ishtiyaq Husain v. Zafrul Islam (AIR 1969 All 161) (supra) where Hon'ble S.K Verma, J., as he then was, held that no doubt S. 80, C.P.C is mandatory and notice has to be issued and served on the State before filing a suit, but this plea can be waived also. Similar is the view expressed in Hira Chand Himmat Lal v. Kashi Nath Thakurji, AIR 1942 Bom 339, where a Division Bench of the Bombay High Court held that a party in whose favour S. 80, C.P.C, prescribed notice to be given, can waive his right to the same. Similar is the view taken in Dhian Singh Shobha Singh v. Union of India (supra) where the Supreme Court held that no doubt S. 80, C.P.C, has to be strictly complied with but nevertheless notice should not be scrutinized in a pedantic manner completely divorced from common sense. In that case the controversy was that in the notice under S. 80, C.P.C, only a sum of Rs. 3,500/- was claimed, but later on it was found that the plaintiff was entitled to more than the sum of Rs. 3,500/-. The High Court did not accept the claim of the plaintiff on the ground that he did not claim any amount more than Rs. 3,500/-. In that reference the Supreme Court held that the approach of the High Court was erroneous. It was further held in Chandu Lal Vadilal v. Government of Bombay, AIR 1943 Bom 138 that one must construe S. 80, C.P.C, with some regard to common sense and with the object to which it appears to have been based. Further it has been held in Gaja v. Das Koery (AIR 1964 All 471) (supra) by Hon'ble Ganeshwar Prasad, J. that it is open to the authority concerned for whose genefit the notice has been issued to waive it also. The natural conclusion is that it is not open to other party (i.e, respondents 4 and 5 in the instant case) to urge the want of notice against maintainability of the suit. It is the authority for whose benefit S. 80 has been enacted can raise an objection about want of notice and press the same. Similar view has been taken by Hon'ble Katju, J., in Banarsi Rai v. D. Ahir, 1964 All LJ 239. In Julal Mandal v. Union of India, AIR 1978 Patna 42, it was held in similar circumstances that if an issue was framed by the trial court about the effect of want of notice under S. 80, C.P.C, and the issue was not pressed by the Government, it means that the Government has waived the right to press the same and it was a clear case of waiver and no other private party can press the said issue in respect of want of notice. Similarly in AIR 1947 PC 197, it has been held that the provision of S. 80, C.P.C, are mandatory no doubt, but it does not mean that the notice meant for the benefit of the authorities cannot be waived by the said authorities. In the instant case the State of U.P has filed a written statement and an issue was also framed on the point but it did not press the issue and the suit was decreed even against the State of U.P The State did not file first or second appeal, hence it is clear that the State has waived the plea of notice under S. 80, C.P.C It is not open to respondents 4 and 5 to raise that plea as no prejudice has been caused to them.
7. As regards the decision of the Supreme Court in Gangappa Gurupadappa Gugwad v. Rachawwa, (1970) 3 SCC 716 : AIR 1971 SC 442 (supra) relied upon by the respondents, it is stated that the Supreme Court at page 446, under para 10, has held, the relevant portion is extracted as under:—
“No doubt it would be open to a Court not to decide all the issues which may arise on the pleadings before it, but if it finds that the plaint on the face of it is barred by any law, if for instance the plaintiff's cause of action is against a Government and the plaint does not show that notice under S. 80, Civil P.C claiming relief was served in terms of the said Section it would be the duty of the Court to reject the plaint recording an order to that effect with reasons for the order. In such a case the Court should not embark upon a trial of all the issues involved and such rejection would not preclude the plaintiff from presenting a fresh plaint in respect of the same cause of action. But, where the plaint on the face of it does not show that any relief envisaged by S. 80 of the Code is being claimed, it would be the duty of the Court to go into all the issues which may arise on the pleadings including the question as to whether notice under S. 80 was necessary. If the Court decides the various issues raised on the pleading, it is difficult to see why the adjudication of the rights of the parties, apart from the question as to the applicability of S. 80 of the Code and absence of notice thereunder should not operate as res judicata in a subsequent suit where the identical questions arise for determination between the same parties.”
8. The aforesaid dictum of the Supreme Court evinces that where a relief is claimed by the plaintiff against the State Government, in that event the delivering of notice is mandatory and in case it has not been done the plaint can be rejected for want of notice, but where no relief has been claimed against the State, the plaint cannot be rejected for want of notice and in that case it would be the duty of the Court to go into all the issues which may arise on the pleadings including the question as to whether notice under S. 80, C.P.C, was necessary and the plaint cannot be dismissed under O. 7, R. 11, C.P.C In the instant case also as the relief was not claimed by the petitioner against the State Government hence the plaint need not be rejected under O. 7, R. 11, C.P.C In the State of Madras v. C.P Agencies, AIR 1960 SC 1309 it has been held that S. 80 is express, explicit and mandatory and admits of no implications or exceptions. The object of the section is manifestly to give the Government or the Public Officer sufficient notice of the case which is proposed to be brought against it. It is just to enable the State Government or the Public Officer to consider the position and decide for itself or himself whether the claim of the plaintiff should be accepted or resisted. In that connection it is necessary to inform the State Government or the public officer in respect of the nature of the suit proposed to be filed against it and the facts on which the claim is founded and the precise reliefs asked for. In the instant case no doubt the State Government was made a party but no relief of claim against it nor any interest of the State was involved. The land has not even vested in the State of U.P or the Gaon Sabha. The State of U.P was properly served and it has filed written statement also and taken the plea about want of notice, but it did not pres that issue nor lead any evidence in support of the plea taken. These facts make it abundantly clear that the State has chosen to waive the plea of notice. Julal Mandal v. Union of India, AIR 1978 Patna 42 is a later decision than Shanti Pada Ganguli v. Union of India, AIR 1976 Patna 74 (supra) and I am of the view that AIR 1978 Patna 42, is the relevant authority on the subject under similar situation as in the present case where the issue was not pressed by the State Government about want of notice and later on the Government did not file any appeal and it was held by the Patna High Court that the notice would be deemed to have been waived by the State Government.
9. In the instant case even though an issue was framed on the want of notice under S. 80, C.P.G, and its effect but the said issue was not pressed by the State Government, nor any evidence was led in support of the said issuer. Even though the suit was decreed by the trial court and the said decree was against the State Government also, but no first or second appeal was filed by the State Government either before the Additional Commissioner or the Board of Revenue and the contest remains solely between the petitioner on one side and respondents 4 and 5 on the other. While considering the merits of the case, the Additional Commissioner has held under Annexure 11 (on page 31 of the paper book) that so far as the merit of the appeal preferred by Jaswant Singh, etc. (respondents 4 and 5) was concerned, it was without any substance. The first appeal of the respondents 4 and 5 was allowed by the Additional Commissioner just on the ground that notice was not given under S. 80, C.P.C, to the State Government, hence the plaint was dismissed under O. 7, R. 11, C.P.C, But in view of the ratio decided of the decisions referred to above, it is clear that where no relief has been claimed against the State Government, it is not necessary to serve the notice on the State Government and particularly in a case where the issue was framed on the point but the State Government did not lead any evidence and even though the suit was decreed no first or second appeal was filed by the State Government nor that issue was raised subsequently before higher authorities. In this view of the matter it is clear that the Board of Revenue and the Additional Commissioner committed error on the face of record in holding that the plaint should be reacted under O. 7, R. 11, C.P.C, particularly in a case like the present one where no relief was claimed against the State Government.
10. For the reasons aforesaid the plaint was illegally rejected under O. 7, R. 11, C.P.C, and the order passed by respondents 1 and 2 cannot be sustained. In view of the discussion aforesaid, I allow the petition and issue a writ of certiorari quashing the judgment dated 10-3-1977 passed by the Board of Revenue and the judgment dated 18-6-1973 passed by the Additional Commissioner (in so far as it is in respect of the validity of the notice under S. 80, C.P.C). The decision of the trial Court dated 29-9-1972 is maintained. Under the circumstances of the case there shall be no order as to costs.
11. Petition allowed.