1

wp-224.11, pil-36.10

pmw

rt

INTHEHIGHCOURTOFJUDICATUREATBOMBAY
ORDINARYORIGINALCIVILJURISDICTION

ShriVileParleKelvaniMandalandOrs.
Versus

C
ou

WRITPETITIONNO.224OF2011

Petitioners

MunicipalCorporationofGreaterMumbaiandOrs.

Respondents

ig
h

WITH
PUBLICINTERESTLITIGATIONNO.36OF2010

Petitioners
Respondents

JanhitManchandOrs.
Versus
BrihanmumbaiMunicipalCorporationandOrs.
WPNO.224OF2011

om

ba
y

Mr. V.A. Thorat, Senior Counsel a/w Mrs. Prachi Tatake and Ms.
ManoramaMohantya/wMr.SatishSrivastava&Co.forPetitioners.
Mr. A.Y. Sakhare, Senior Counsel a/w Ms. Trupti Puranik, for
RespondentMumbaiMunicipalCorporation.
Mr.J.S.Saluja,AGP,forRespondentStateofMaharashtra.
Mr.SureshK.Malia/wMr.VishnuChoudhari,fortheRespondentNo.6.
Mr.M.M.Vashi,SeniorCounsela/wMr.A.A.Siddiquii/byA.A.Siddiqui
&Associates,fortheRespondentNos.7and8.

PILNO.36OF2015ANDCHSWNO.23OF2015A/WCHSW/57OF
2015
Mr.BhagwanjiRaiyani,SecondPetitionerinperson.
Mr. A.Y. Sakhare, Senior Counsel a/w Ms. Trupti Puranik, for
RespondentMumbaiMunicipalCorporation.
Mr.J.S.Saluja,AGPforRespondentStateofMaharashtra.
Mr.SureshK.Malia/wMr.VishnuChoudhariforApplicantinChamber
SummonsNo.57of2015.
Mr.MakarandKalea/wAasifSiddiqui,forRespondentNos.7and8and
forApplicantinChamberSummonsNo.23of2015.
1 of 70

::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:58 :::

wp-224.11, pil-36.10

CORAM:A.S.OKA&REVATIMOHITEDERE,JJ.

rt

JUDGMENTRESERVEDON:13thAUGUST,2015

JUDGMENT(PERA.S.OKA,J.):
.

C
ou

JUDGMENTPRONOUNCEDON:23rdOCTOBER,2015

InthesetwoPetitions,thegrievanceisregardingthefailure

of the Mumbai Municipal Corporation to take action against illegal

ig
h

hawking.

FACTSOFPILNO.36OF2010
PILNo.36of2010hasbeenfiledbythesecondPetitioner

2.

appearinginpersonwhoisthePresidentofthefirstPetitioneralong

ba
y

withoneShriDattaramKumkar.ThisPetitionhasbeenfiledinvitingthe
attentionoftheCourttotheillegalhawkingactivitiesontheGulmohar
RoadwhichconnectstoS.V.RoadandJuhuTaraRoadandVersovaRoad

om

throughLinkRoadwhichisa100feetwideextremelybusyroad.Itis
pointedoutthatona600meterstretchofthesaidroadbetweenthe
Mithibai CollegeNMIMS College junction to the Cooper Hospital
junction,therearelargenumberofeducationalinstitutionsinwhich
about25,000studentsarestudying.Itispointedoutthatonthisroad,
thereisalargevehiculartrafficandpedestrianmovementaswell.Apart
from the educational institutions and the Cooper Hospital, it is
predominantlyaresidentiallocalityinwhichtherearelargenumberof
residentialbuildings.
2 of 70

::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:58 :::

3.

wp-224.11, pil-36.10

ItispointedoutthatthousandsofpeopleusingGulmohar

rt

roadhavetosuffertrafficjams.Itispointedoutthatoneofthemost

C
ou

majorcausesoftrafficjamisillegalshops/stallsonfootpathsonboth
sidesoftheroad. Itispointedoutthatinmanyofthesestalls,the
occupantsareillegallyrunningeateries.Theyarecookingfoodinthe
stalls.Theyaresellingfastfood.Itispointedoutthatthecustomersof

ig
h

these stalls park their vehicles either in angular or parallel manner

whichcreatestrafficjams.Itispointedoutthattheseillegalstallsare
creatingalotofdirtandairaswellasnoisepollution.Itispointedout

thatlargenumberofpartyworkersofapoliticalpartyhavebeengiven
authorisationtorunZunkaBhakarstalls.Theyarealsodoingcookingin

ba
y

thestalls.

om

4.

ThePetitionersarerelyinguponinformationobtainedby

themundertheRighttoInformationAct.ThePetitionersarerelying
uponlargenumberjudgmentsincludingtheorderspassedbytheApex
Court from time to time in Civil Appeal Nos.41564157 of 2002
(Maharashtra Ekta Hawkers Union and Another vs. Municipal
CorporationofGreaterMumbaiandothers).Relianceisplacedonfinal
judgmentdeliveredbytheApexCourtinthesaidCivilAppealswhichis
dated9thSeptember,20131.ThePetitionersarerelyinguponnumberof
photographs annexed to the Petition as well as to the additional
1 (2014)1 SCC 490

3 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:58 :::

wp-224.11, pil-36.10

5.

C
ou

prayersareforremovalofstallsandvariousotherreliefs.

rt

affidavits filed by the second Petitioner appearing in person. The

InPILNo.36of2010,ChamberSummonsNo.57of2015

hasbeentakenoutbyShri.N.TaranathShettyseekinginterventionin
thePILandforseekingreliefofrestrainingtheMunicipalCorporation

ig
h

fromdemolishingthethreestallswhichareknownasAareySaritastalls
atGulmoharRoad,VileParle(W).WemaynoteherethatAareystalls
wereestablishedinMumbaiforsellingthemilkandmilkproductsof

theGovernmentofMaharashtraDairysituatedatAarey,Mumbai.There
isaChamberSummonsbeingChamberSummons(L)No.23of2015

ba
y

takenoutbyShriShivajiRamaGadkariand8others. TheApplicants
areclaimingtobeholdingstallsonthefootpathsnearthepropertyof

om

VileParleKelvaniMandal(thefirstPetitionerinWritPetitionNo.224of
2011)andtherefore,theyclaimthattheywillbeaffectedbytheorders
passedinthisPIL.

6.

ThereisanaffidavitfiledbyDr.BapuGopinathPawar,the

Deputy Municipal Commissioner (RE) of the Mumbai Municipal

Corporation.Intheaffidavithehasstatedthatasurveyofstallssituated
onGulmoharRoadfallingwithin100metersofeducationalinstitutions
wasmade.Hestatedthereare20stallswhicharefallingwithinthe

4 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:58 :::

wp-224.11, pil-36.10

distanceof100metersofeducationalinstitutions.Itispointedoutthat

rt

outof20stalls,twostallshavebeendemolishedwhichwereusedas

C
ou

ZunkaBhakarKendra.Itispointedoutthattherearecivilsuitsfiledin
relationtosevenAareystallsinwhichthereareprohibitoryorders.Itis

pointed out that there are eight other licensed stalls of protected
hawkers having licenses under Section 313 (A) of the Mumbai

ig
h

MunicipalCorporationAct,1888.Apartfromtheaforesaidstalls,there
arethreestallsinrespectofwhichlicensesunderSection394ofthe
saidActof1888havebeenissued.Itispointedoutthatthoughnotices

ofevictionhavebeenserved,theholdersofthestallshavefiledCivil

ba
y

Suitsinwhichthereareprohibitoryorders.
FACTSOFWritPetitionNo.224of2011

om

7.

WritPetitionNo.224of2011hasbeenfiledbyShriVile

Parle Kelvani Mandal, the Principal of the Mithibai College of Arts,

ChauhanInstituteofScienceandA.J.CollegeofCommerceaswellas
bythePrincipalofNarseeMonjeeCollegeofCommerceandEconomics.
TheprayerinthisPetitionunderArticle226oftheConstitutionofIndia
isfordirectingtheMunicipalCorporationtoremovestallsputuponthe
footpath of Bhaktivedanta Swami Marg from Mithibai College,
Gulmohar Road upto SBM Polytechnic College on Irla Road, J.V.P.D.
Scheme,Mumbai.AprayerisalsomadeforrestrainingtheMunicipal

5 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:58 :::

wp-224.11, pil-36.10

Corporationfromgrantinganylicense/permissiontothehawkersto

rt

putupstallsortocarryoutbusinessonthefootpaths.TheRespondent

C
ou

Nos.6to9havebeenimpleadedwhohavebeencarryingoutbusinessin

the said stalls. It is pointed out in the said Petition that the first
Petitioner Society is a Charitable Trust which is running and
administeringvariouseducationalinstitutionssuchasN.M.Instituteof

ig
h

Managementstudies,N.M.College,SBMPolytechnicCollegeMithibai
CollegeofArts,ChauhanInstituteofScience,A.J.CollegeofCommerce,
N.M.CollegeofCommerce,Economicsandothers. Itispointedout

thatabout30,000studentsaretakingeducationinthesaideducational
institutions run by the first Petitioner. It is pointed out that on the

ba
y

footpaths surrounding the educational institutions of the Petitioners,

thereareunauthorisedlyconstructedstallsandthehawkersareillegally

om

carryingoutbusinessfromthesaidstalls.Itispointedoutthatstalls
havebeenconstructedeitherclosetothegatesofthecompoundwallof
theinstitutionsofthefirstPetitionerorbyblockingthe gatesofthe
compoundwall. Itispointedoutthaton30 th May,2000thoughthe
saidstallsweredemolishedbytheMumbaiMunicipalCorporation,the
samewereallowedtobereconstructedandthereafter,noactionhas
beentakenbytheMunicipalCorporation.
8.

The first Petitioner made an application to the Assistant

Commissioner,'K'WardoftheMumbaiMunicipalCorporationseeking
6 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:58 :::

wp-224.11, pil-36.10

permission to beautify the footpaths abutting the educational

rt

institutionsrunbyit.On18 thJune,2000,apermissionwasgrantedby

C
ou

thefourthRespondent.Assomestallswereagainputupon24 th July,
2000,thefirstPetitioneraddressedalettertotheSeniorInspectorof
PoliceofJuhuPoliceStationcomplainingabouttheunauthorisedstalls
andrequestingthepolicetopatrolthesaidarea. ThefirstPetitioner

ig
h

calleduponthefourthRespondentbyaletter3 rd November,2000to
removethestalls.On12thMarch,2001thefourthRespondentinformed
thefirstPetitionerthatwhilecarryingoutdemolitionon31 stMay,2000

certainstallswhichwereprotectedbytheordersoftheCityCivilCourt
were wrongly demolished. The first Petitioner was called upon to

ba
y

removetheflowerbedmadebyitonthesaidspottoaccommodatea
stallofoneMr.N.ArumuganNainar.

om

9.

Ultimately, the first Petitioner was forced to file Writ

Petition No.1799 of 2001 in this Court. The said Writ Petition was
disposed of by a Division Bench by order dated 21 st January, 2002
whichreadsthus:
P.C.:
1.

Heardparties.

2.

RespondentCorporation is directed to remove within two

weeksthehawkersonthefootpathnearthepremisesofthe
Petitioner'sEducationinstitutionsandallowthePetitioner
to continue the beautification work which is already
7 of 70

::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:58 :::

wp-224.11, pil-36.10

sanctionedbytheCorporation.TheofficerinchargeofJuhu

rt

Police Station is directed to give police protection to the

Municipalstaffforthepurposeofremovalofthehawkers

10.

3.

Petitionisdisposedof.

4.

Certifiedcopyexpedited.

C
ou

fromthefootpathabuttingthePetitionerpremises.

Itispointedoutthatnotwithstandingthesaidorder,the

ig
h

stallshavenotbeenremoved. It is pointed out that three Member

HawkingZoneCommitteeconstitutedbytheMunicipalCorporationby

orderdated16th August,2005declaredShamraoParulekarMarg(13 th

ba
y

Road)underJ.V.P.DSchemeasaNonHawkingZone.

11.

By a letter dated 12 th October, 2010 addressed by the

Advocate for the Petitioners, the first Respondent Municipal

om

Corporationwascalledupontoremoveallhawkerscarryingoutthe
businessonthefootpathintheperipheryoftheEducationalInstitutions
of the first Petitioner. On 28th October, 2010, the Senior Inspector
(Removal of Encroachment) of the Mumbai Municipal Corporation
informedtheAdvocateforthePetitionersthatencroachmentremoval
actionhasbeentakenandthesamewillbecontinued.

12.

The case of the Petitioners is that there are number of

illegalstallsfromwhichthehawkersoperatingonthefootpathonthe
8 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:58 :::

wp-224.11, pil-36.10

roadinquestion.Itistheircasethatthehawkersarecontendingthat

rt

theyhaveobtainedpermissionsfromtheMunicipalCorporationtocarry

C
ou

outtheirbusinessonthefootpath.On13thDecember,2010theSecurity

Guard Agency employed by the first Petitioner informed that on the

veryday,astallwasconstructedonthefootpathandabout5shops
havecomeuponthefootpath.Accordingly,theWritPetitionwasfiled

ig
h

on7thJanuary,2011bythePetitionersseekingawritofmandamusfor
setting aside the permissions/ licenses granted by the Municipal
Corporationtothehawkerstoputupstallsandtocarryoutbusinesson

the footpath of the said road i.e. Bhaktivedanta Swami Marg from
MithibaiCollege,GulmoharRoaduptoSBMPolytechnicCollegeonIrla

ba
y

Road,JVPDScheme,Mumbai.Further,awritofmandamusisprayed
fordirectingtheRespondentsMunicipalCorporationtoremovethe

om

stalls of the hawkers. Further a relief is prayed for restraining the

MunicipalCorporationfromgrantinglicenses/permissionstocarryout
businessonthesaidfootpath.

13.

TherearenumberofaffidavitsfiledonrecordoftheWrit

Petition.TheMunicipalCorporationfiledanaffidavitofShriMahendra
ChandrakantShirke,SeniorInspector(License),K/Westwarddated24 th
March,2011.Inthesaidaffidavit,hestatedthatfromJanuary,2010to
March,2011themunicipalofficershavetakenactionon47occasions

9 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:58 :::

10

wp-224.11, pil-36.10

against the unauthorised hawkers in the vicinity of the educational

rt

institutionsofthefirstPetitioner.Relianceisplacedonthephotographs

C
ou

annexedtotheaffidavit.ItisstatedthattheJuhuPolice Stationhas
beenrequestedtocarryoutpatrollinginthesaidarea.Itispointedout
thatthereare26stallsinthevicinityoftheeducationalinstitutionsout
ofwhich4wereunauthorised. Itisstatedthatall4stallshavebeen

ig
h

removedinMarch,2011.Incaseof2otherstalls,Suitsarependingin
theCityCivilCourt.Itispointedoutthatoutoftheremaining20stalls
whicharepermittedbytheMunicipalCorporation,5areHandicapped

Public Call Offices (H.P.C.O), 6 are Aarey/ Aarey Sarita stalls. It is

stated that 2 stalls are Zunka Bhakar Centres, 4 other stalls have

ba
y

licensesunderSection394oftheMumbaiMunicipalCorporationAct,
1888 (for short MMC Act) and 3 stalls are holding licenses under

om

Section 313A of the MMC Act. Relying upon the order dated 9 th
December,2003oftheApexCourt,itwasstatedintheaffidavitthat
thesestallsareallowedtocontinueintheNonHawkingZoneasthese
stallshavebeenissuedlicensespriortotheorderoftheApexCourt.Itis
stated that an action has been initiated against those who have
infringed conditions of license/permit. It is claimed that though a
requestwasmadebytheMunicipalCorporationtothePetitionersto
submit a proposal for beautification of pavement opposite their
EducationalInstitutionstoensurethattherearenostallserected,the

10 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:58 :::

11

wp-224.11, pil-36.10

Petitionershavenotresponded.Thereisanotheraffidavitjointlyfiled

rt

byShriUmeshChandrashekharBodkheandVijayJanardhanGawde,

C
ou

whoaretheofficersoftheMumbaiMunicipalCorporation.Thesaid
affidavit is dated 8th December, 2012. What is stated in the earlier
affidavitofShriMahendraShirkeisrepeatedinthesaidaffidavit. In
addition,achartgivingdetailsofthe26stallsstyledastheGulmohar

ig
h

RoadstallinventorylistinK/Wwardhasbeenannexed. Thereisa
further affidavit filed by Shri Ramesh Waman Pawar dated 26 th
December,2011whoistheAssistantCommissioner,K/Westward.Same

officerShriRameshPawarfiledfurtheraffidavitdated20 th December,
2011. In the said affidavit, precautions taken by the Municipal

ba
y

Corporation for preventing illegal hawking have been set out. It is

statedthataMunicipalvehicleisbeingpermanentlydeployedatthe

om

site since last four months from 10.00 am to 8.00 pm. In the said
affidavit,itisstatedthatsofar,6stallsoutof26stallsinthevicinityof
theeducationalinstitutionsofthefirstPetitionerhavebeendemolished.
ItisfurtherstatedthatthreestallsinrespectofwhichSuitsarepending
in the City Civil Court will be demolished after interim orders are
vacated. ItisstatedthattwoZunkaBhakarstallswillbeshiftedin
threemonthsasperthepolicyoftheMunicipalCorporationknownas
Annadata Ahar Kendra Yojana. The correspondence made with the
policehasbeenannexed.Theorderdated30 thJuly,2004passedbythe

11 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:58 :::

12

wp-224.11, pil-36.10

ApexCourtinCivilAppealNos.41564157of2002hasbeenannexedto

rt

thesaidaffidavitwhichrecordsthatearlierorderdated9 th December,

C
ou

2003permittinghandicappedpersonswhohavebeengrantedlicense
forrunningthePublicCallOffices(PCO)/AareySaritastallstocontinue
torunthosestallseveninnonhawkingzoneshasbeenmodifiedandit
is provided that no further new licenses to be granted to any other

ig
h

personsincludinghandicappedpersonsinthenonhawkingzones.The
orderspecificallyprovidesthatinPCOstallsnootheractivityshallbe
permittedandinrespectoftheotherstalls,onlytheactivityasprovided

inthelicensewillbepermitted. Lastly,thereisanaffidavitdated9 th
July,2015filedbyShriParagMasurkar,theAssistantCommissionerof

ba
y

theK/Wwardsettingoutthestatusofthestalls.Tothesaidaffidavit,a
chartgivingdetailsofthe26stallsstyledastheGulmoharRoadstall

om

inventorylistinK/Wwardhasbeenannexed.Itrecordsthat2Zunka
Bhakarstallsandsixotherstallshavebeendemolished.Hestatedthat
there were 5 HPCO which are permitted under Section 313A of the
MMCAct.Therewere3squatterstallspermittedunderSection313A.It
ispointedoutthattheholdersof7AareySaritastallshavefiledsuitsin
theCityCivilCourtsoutofwhichonehasbeendecreedandsixother
suits are pending in which there are interim orders. Out of the 3
remainingstalls,incaseof2thereareinterimordersoftheCityCivil
Courtpreventingthedemolition.Thethirdstallinfrontofagateofan

12 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:58 :::

13

wp-224.11, pil-36.10

educationalinstitutionofthefirstPetitionerwasdemolished,butitwas

rt

illegality reconstructed. It is pointed out that the said stall was

C
ou

protectedbyanadinterimorderofthisCourtinanAppealfromOrder.

14.ThereisanaffidavitinreplyfiledbythesixthRespondent.
HeclaimedthathewasrunningthreeAareySaritastallsfromtheyear
1986.HeclaimedthathehasbeenpayinggroundrenteithertoBMCor

ig
h

toAarey.HeisrunningAareySaritaPrivateStallNo.7inthenameof
DhirajEnterprisesaswellasAareySaritaStallNo.98and168atN.S.

Road No.1 opposite N.M. College Vile Parle (West), Mumbai. He

claimedthatalicensehasbeengrantedinrespectofonestallofDhiraj

ba
y

Enterprises under Section 394 of MMC Act. The said license was
revoked.HestatedthathehasfiledaCivilSuitintheCityCivilCourt
forchallengingactionofrevocationofthesaidlicenseinrespectofthe

om

stallofDhirajEnterprises.Heclaimedthatfromtheothertwostalls,he
issellingproductsofAareydairyafterobtainingmunicipallicensefrom
the years 1981 and 1985 respectively. He claimed that the said two
stallswereconstructedbytheStateofMaharashtrawhichwerehanded
overtohim. Hestatedthatthe stallofDhirajEnterpriseshasbeen
constructedonthebasisofthepermissiongrantedbytheGovernment
andtherefore,hehasbeenpayinggroundrenttotheGovernmentand
totheMunicipalCorporation. Heclaimedthatallthethreestallsare
protectedandthesameareprotectedevenundertheNationalPolicyfor
13 of 70

::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:58 :::

14

wp-224.11, pil-36.10

Urban Street Vendors, 2009. He claimed that there are various

15.

C
ou

GulmoharRoadwhichareprotected.

rt

authorised stalls in existence for last more than 3035 years on

ShriShivajiRamaGadkaritheRespondentNo.7onbehalf

of himself, Respondent Nos.8, 9 A to 9D has filed an affidavit. It is

claimed that since the year 19992000, they are stall holders. It is

ig
h

pointedoutthatpredecessorofRespondentNos.9Ato9Dhavefiled
Civil Suits in the City Civil Court which have been decreed. It is

contendedthatthesaidRespondentsaresellingAareydairymilkand
other milk products in their respective stalls as per the permission

ba
y

grantedbyAareydairyon2nd August,2004.Itiscontendedthatthe
orderpassedinWritPetitionNo.1799of2001filedbythePetitionersis
notbindingonthemastheywerenotimpleadedaspartiesinthesaid

om

Petition.

16.

There is a Chamber Summons No.137 of 2011 for

interventionfiledbyAazadHawkers'Union.
SUBMISSIONS
17.

ThelearnedSeniorCounselrepresentingthePetitionersin

Writ Petition No.224 of 2011 has made detailed submissions. The

secondPetitionerappearinginpersoninPILNo.36of2010hasmade
detailedsubmissions.

14 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

15

18.

wp-224.11, pil-36.10

ThelearnedSeniorCounselShriThoratappearingforthe

rt

PetitionersinWritPetitionNo.224of2011hastakenusthroughthe

C
ou

variousordersofthisCourtaswellastheordersoftheApexCourt
passedfromtimetotimeinCivilAppealNos.41564157of2002and
otherconnectedPetitions.
19.

ThelearnedSeniorCounselsubmittedthattheorderdated

ig
h

21st January,2002passedbytheDivisionBenchofthisCourtinWrit
PetitionNo.1799of2001hasnotbeenchallengedbyanyoneandthat

thesamehasbecomefinal.Heurgedthattheaffectedvendorswhoare
occupying the footpaths in question have not challenged the said

ba
y

decision.Invitingourattentiontotheorderdated9 th December,2003
passed in Civil Appeal Nos.41564157 of 2002 and other connected
mattersandinparticularConditionNo.3incorporatedinparagraph7

om

thereof,heurgedthatthedirectionthatthereshouldbenohawking
within100metersfromanyplaceofworship,holyshrine,educational
institutionsandhospitalshasnotbeendisturbedbytheApexCourtin
any of its subsequent orders including the final order dated 9th
September,2013.He,therefore,submittedthatapartfromtheaforesaid
orderofthisCourtinWritPetitionNo.1799of2001,thereisacomplete
prohibition on hawking within 100 meters of any educational
institution. He also invited our attention to the other directions
containedinclause14oftheJudgmentandOrderdated9 thDecember,
15 of 70

::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

16

wp-224.11, pil-36.10

2003 in the aforesaid Civil Appeals. He pointed out the direction

rt

contained in clause 5 of paragraph 14 which makesit clear that no

C
ou

cookingshallbepermittedbythehawkers.Hesubmittedthateventhe
sale of cooked food, cut fruit and juices is subject to obtaining of
permission/license.Hepointedoutthatphotographsonrecordshow
that the hawkers are cooking food in many stalls . He invited our

ig
h

attentiontotheadditionalaffidavitplacedonrecordwhichshowsthat
theaccesstotheCollegesrunbythefirstPetitionerisblockedbysome
of the stalls. He pointed out the provisions of the Street Vendors

(ProtectionofLivelihoodandRegulationofStreetVending)Act,2014
(forshorttheStreetVendorsAct).Heurgedthattheprovisionsofthe

ba
y

StreetVendorsActdonotpermithawkingwithin100metersfromthe
educationalinstitutions.Moreover,itdoesnotprotecthawkerswhoare

om

obstructingentrytotheprivateproperties.Heurgedthattheorderof
thisCourtdated21stJanuary,2002inWritPetitionNo.1799of2001is
notaffectedbytheStreetVendorsActandtherefore,thesaidorderwill
havetobeimplementednotwithstandingtheprovisionsoftheStreet
Vendors Act. He urged that the provisions of the Street Vendors Act
cannotbeinterpretedtomeanthathawkerswhoareillegallycarrying
on the business should be protected. The learned Senior Counsel
contendedthateventhedefinitionofstreetvendorundertheStreet
VendorsActdoesnotpermitcookingoffoodbythevendors.Hewould,

16 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

17

wp-224.11, pil-36.10

therefore,urgethatadirectionbeissuedtotheMunicipalCorporation

rt

toremovestallsputupbyhawkersasprayedforinprayerclauses(a)

20.

C
ou

and(b)ofthePetition.

ShriRaiyaniappearinginpersoninsupportofPILNo.36of

2012 has invited our attention to the photographs on record. He

ig
h

pointedoutthatnotonlythatillegalhawkingisbeingpermittedbutall
hawkers are cooking food. He invited our attention to several
photographsonrecordofthePetitionaswellasphotographsfiledalong

withthe written submissions.Hepointed outthat the hawkershave

virtuallyconvertedtheirstallsintoeateries. Hepointedoutthateven

ba
y

the authorised hawkers have committed breaches of the terms and

conditionsonwhichhawkingwaspermitted.Heurgedthatasaresult

om

ofeateriesrunbythehawkers,theircustomersindiscriminatelypark
their vehicles near the stalls thereby causing traffic congestion. He
submittedthatthestandtakenbytheMunicipalCorporationthatmost
ofthehawkersarelegaliscompletelywrong.Hepointedoutthatthe
AareySaritastallrunbyDhirajEnterpriseshasbeenconvertedintoa
fullfledgedeateryasseenfromthephotographs.Hesubmittedthatthe
municipalofficersareencouragingillegality. Hesubmittedthatasa
resultoftheillegalactsofhawkersoccupyingfootpathsinandaround
Gulmoharroad,theentireareahasbecomecongestedandthemembers

17 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

18

wp-224.11, pil-36.10

ofthepublicaresufferingagreatdealofinconvenience.Hepointedout

rt

thatitisimpossibletowalkonthefootpathsinthesaidareawhich

unhygienicfoodissoldinthestalls.

21.

C
ou

havebeentakenoverbythehawkers.Heurgedthatapartfromallthis,

Shri S.K. Mali representing the 6 th Respondent in Writ

ig
h

PetitionNo.224of2011hasalsomadedetailedsubmissions.Heisalso
representingtheApplicantinChamberSummonsNo.57of2015inPIL
No.36of2010.HepointedoutthatsixthRespondentinWritPetition

No.224of2011ShriN.TaranathShettyisrunningthefollowingthree
stalls : (1) Juhu Friends Association (Aarey Sarita) stall No.98; (2)

ba
y

Dhiraj Enterprises (Aarey Sarita) stall No.7; (3) Vikas Mitra Mandal
(AareySarita)stallNo.168oppositeMithibaiCollegeGulmoharRoad

om

No.1,VileParle(West).HissubmissionisthatthesaidRespondentin
WritPetitionNo.224of2011isrunningthesaidstallsfor34yearsand
thestallsareprotected. Hepointedoutthatasfarasthestallofthe
DhirajEnterprisesisconcerned,byletterdated8thJune,1987,theWard
OfficerpermittedconstructionofAareySaritastall.Hepointedoutthat
JuhuFriendsAssociationStallhasbeenallowedundertheletterdated
23rdNovember,1989bytheController(ProcurementandDistribution)
GreaterBombayMealSchemeforthesaleofAareydairyproducts.He
pointedoutthatVikasMitraMandalAareySaritastallwas allowed

18 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

19

wp-224.11, pil-36.10

undertheletterdated3rdJanuary,1992bytheController(Procurement

rt

andDistribution)GreaterBombayMealScheme.Heurgedthatthesaid

C
ou

Respondentisrunningthesaidstallsforsellingonlymilkproducts.He
submitted that the three stalls are protected and the protection

continues even under the Streets Vendors Act. Shri M.M. Vashi, the
learnedSeniorCounselappearingforRespondentNos.7and8inWrit

ig
h

PetitionNo.224of2011whoaretheApplicantsinChamberSummons
No.23of2015hasmadedetailedsubmissions.Heinvitedourattention
totheorderspassedbytheApexCourtfromtimetotimeinCivilNos.

41564157 of 2002 and urged that the stalls of the concerned

Respondentshavebeendulyprotected.Withoutprejudicetotherights

ba
y

and contentions of the said Respondents, he urged that the said

Respondentsarewillingtoshifttheirstallsonthefootpathsabutting

om

educationalinstitutionsofthefirstPetitionerinWritPetitionNo.224of
2011providedthesaidRespondentsareaccommodatedelsewhereby
the Municipal Corporation by allotting pitches/stalls. Inviting our
attention to the various provisions of the Street Vendors Act, he
submitted that the said Act is brought on the statute book with the
objectofprotectingtherightsofurbanvendors.Invitingourattention
to the elaborate scheme provided under the said Act for protecting
streetvendors,hesubmittedthateventheRuleshavenotbeenframed
underthesaidActandtherefore,theStreetVendingCommitteeisnot

19 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

20

wp-224.11, pil-36.10

inexistence.HepointedoutthateventheTownVendingCommitteeis

rt

notinexistenceandtherefore,thesurveyascontemplatedbySection3

C
ou

isnotcarriedout.HeurgedthatinviewofSubsection(3)ofSection
3,unlessasurveyisconductedbytheTownVendingCommittee,no
street vendor can be evicted or relocated. He urged that unless a
certificateofvendingisissuedtoallvendors,noonecanbeevictedor

ig
h

relocated.HeinvitedourattentiontoSection31oftheStreetVendors
ActwhichprovidesthattheAppropriateGovernmentshallundertake
promotionalmeasuresofmakingavailablecreditinsuranceandother

welfareschemesincludingsocialwelfaresecurityforstreetvendors.He
pointedoutthatcontentsoftheplanforstreetvendorsareprovidedin

ba
y

theFirstSchedule.Hepointedoutthematterstobeprovidedinthe
schemeforthestreetvendorswhichisrequiredtobeframedbythe

om

Appropriate Government have been incorporated in the Second

Schedule.Hepointedouttheprinciplesofrelocationincorporatedin
SecondSchedule.Heurgedthatnostreetvendorcanbedisturbednow.

22.

ThelearnedAGPhasplacedon recordaletterdated4 th

August, 2015 addressed to him by the Joint Secretary, Urban

developmentDepartment.TheletterrecordsthataCommitteehasbeen
constitutedforframingoftheRulesinaccordancewithSubsection(1)
of Section 36 of the Street Vendors Act. The letter records that a

20 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

21

wp-224.11, pil-36.10

schemeisrequiredtobeformulatedunderSection(1)ofSection38.

rt

The letter records that the Committee was constituted to frame the

C
ou

schemeaswellastheRules.ItispointedoutthattheCommitteehas

submitteddraftRulesanddraftschemetotheStateGovernmentwhich
havebeenapprovedbytheDepartmentofLawandJusticesubjectto
certainconditions.Itisstatedthatthe processofformulationof the

ig
h

schemeandframingoftheRulesmayrequireatleastaperiodoffour
months.HestatedthattheStreetVendorsActhascomeintoforcewith

23.

effectfrom1stMay2014.

ThelearnedSeniorCounselShriSakhareappearingforthe

ba
y

MumbaiMunicipalCorporationinvitedourattentiontotheaffidavits
filedbytheMunicipalofficersinthesetwoPetitions.Hepointedoutthe
chartsannexedtotheaffidavitsandinparticulartheaffidavitdated7 th

om

July,2015filedinWritPetitionNo.224of2011.Hepointedoutthatthe
actiontakenasregardseachillegalstallhasbeensetout. Heinvited
ourattentiontothechartannexedtothesaidaffidavit.Hepointedout
thatoutof26stallslistedinthesaidchart,stallsatSr.No.10,11,18,
19,22,23and25havebeendemolished.Hepointedoutthatincaseof
stallsatSr.Nos.1,2,4,7,8,9,12,15and21,Suitsarependinginthe
City Civil Court in which prohibitory orders have been passed. He
pointedoutthatcertainstallsareprotectedbygrantoflicenseunder
Section313AoftheMumbaiMunicipalCorporationAct. Hepointed
21 of 70

::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

22

wp-224.11, pil-36.10

outthatstallatSr.No.17wasshiftedandexistingstructureofthestall

rt

wasdemolishedon12th January,2015. Invitingourattentiontothe

C
ou

provisionsoftheStreetVendorsActhesubmittedthatinviewofthe

prohibition imposed by the provisions of the Street Vendors Act, no

furtheractioncanbetakenbytheMunicipalCorporation.

ShriRaiyani,thePetitionerappearinginpersoninthePIL

ig
h

24.

submitted that whenever action is proposed to be taken by the

MunicipalCorporationagainstillegalhawkers,aprecautionshouldbe

takenbyfilingcaveatsintheconcernedCourtsandbyensuringthatthe
Suitsandproceedingsarecontested. Hepointedoutthe mannerin

ba
y

whichtheSuitsareprogressingintheCityCivilCourt,heurgedthat
thedirectionsbegiventodisposeoftheSuitsinatimeboundprogram.

om

CONSIDERATIONOFTHEDECISIONSOFTHEAPEXCOURT
25.

We have carefully considered the submissions. Firstly, it

willbenecessarytomakeareferencetovariousorderspassedbythe
ApexCourtinthecaseofBombayHawker'sUnionvsBombayMunicipal
Corporation2aswellasinthecaseofMaharashtraEktaHawkersUnion
andanothervs.MunicipalCorporationofGreaterMumbaiandothers
(CivilAppealNos.41564157of2002andotherconnectedmatters).

2(1985)3SCC582

22 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

23

26.

wp-224.11, pil-36.10

InthecaseofBombayHawker'sUnion,certaindirections

rt

were issued by the Apex Court. In paragraph No.9, the Apex Court

C
ou

reproduced the guidelines suggested by the Commissioner of the

Mumbai Municipal Corporation in his letter addressed to the Mayor
whichreadthus:

Thefollowingrestrictions/conditionsshallbeimposedonsuch
hawkers:

Theyshoulddotheirhawkingbusinessonlyonanareaof1

ig
h

(i)

Mt.1Mt.onthefootpathwhereveritexistsoronthe
extremesidesofthecarriageway,insuchamannerthat

thevehicularandpedestriantrafficisnotobstructedand
accesstoshopsandresidencesisnotblocked.

ba
y

(ii) Theyshouldnotputupanystallorplaceanytable,stand
or such other thing or erect any type of structure
whatsoeveronthepitchonwhichtheyareconductingtheir

om

hawkingbusinessnorshouldtheyhawkonhandcarts.They
should also not put up any cloth, plastic sheet, chaddar,
tarpaulinetc.asshelter.

(iii) They should not hawk within 100 metres from any
place of worship, holy shrine, educational institution
and general hospital and within the periphery of 150
metresfromanyMunicipalorothermarket.

(iv) They should not create any noise for attracting the
public/customers.
23 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

24

wp-224.11, pil-36.10

(v) They should not hawk any cooked food articles, cut

rt

fruitsetc.

C
ou

(vi) They should do their hawking business only between 7

a.m.and9p.m.onthedayonwhichtheprescribeddaily
feeisrecovered.Inotherwords,paymentoftheprescribed
dailyfeeshallnotbedeemedtoauthorisethemtodotheir

ig
h

hawkingbusinessbeyondtheaforesaidhours.

(vii) They should extend full cooperation to Municipal

conservancystaffforcleaningthestreetsandfootpathsand
alsotootherMunicipalstaffforcarryingoutanyMunicipal

work.TheyshouldalsocooperatewithotherGovernment
and public agencies such as the B.E.S.T. Undertaking,

ba
y

BombayTelephones,B.S.E.S.Ltd.,etc.forlayingcablesor

om

fordoinganyrepair/developmentwork.
(Emphasisadded)

TheApexCourtconsideredthesuggestionsandheldthus:
10.We have considered carefully the eight conditions
mentioned above, subject to which the Commissioner
proposestograntlicencestothehawkers. Noexception
canbetakentoconditions(i),(ii),(iii),(iv),(vii)and
(viii) except that conditions (ii) and (viii) require a
little clarification. The first part of condition (ii)
beginning with the words They should not put up any
stallandendingwiththewordsnorshouldtheyhawkon
handcarts may stand. But, the second part of that

24 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

25

wp-224.11, pil-36.10

condition should not be construed to mean that the

rt

hawkers will not be entitled even to protect their wares

againstthesun,rain,windandsoon,byspreadingacloth,

C
ou

plastic sheet, chaddar, tarpaulin etc. The object of that

conditionistoensurethatnoconstructionisputupandno
handcartsareused.Insofarascondition(viii)isconcerned,
allthatitshouldbeunderstoodtomeanisthatthefact
thatadailyfeeischargedwillnotconferuponthehawker

ig
h

therighttodohisbusinessatanyparticularplace.Thatis
because, the daily fee is a kind of licence fee to do
business;itisnotafeechargedfordoingbusinessatany
particularplace.TheCommissionerwill,therefore,befree

to impose conditions (i), (ii), (iii), (iv), (vii) and (viii)

while granting licences to the hawkers in the Hawking
Zones, after making the necessary clarifications in

ba
y

conditions (ii) and (viii). Condition (v) is an

unreasonablerestrictiononthehawkers'righttocarry
ontheirtradeorbusinessandmustbedropped.There

om

are several working families in Bombay, belonging to

differentstrataofsociety,whichdependuponthefood
suppliedbyhawkers.Wedonotseeanyvalidreason
whyhawkersshouldnotbeallowedtosellcookedfood,
cutfruitsandthelike.Thatwill,ofcourse,notconfer
uponthemthelicencetoselladulteratedorunhygienic
food.Theyshallhavetocomply,likeanyothervendor
of food, with the Municipal licensing regulations and
the provisionsofthePreventionof Food Adulteration
Act, 1954. Lastly, the hoursof business mentionedin
condition(vi)shouldbefrom7a.m.to10p.m.instead

25 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

26

wp-224.11, pil-36.10

quiteyoungat10p.m.

C
ou

(emphasisadded)

rt

of 7 a.m, to 9 p.m. In cities like Bombay, nights are

Thus,theApexCourtdidnotpermitcookingoffoodbythe
vendorsandtheywerepermittedtosellonlythecookedfood.TheApex
Court also directed that no hawking shall be permissible within the

27.

ig
h

distanceof100metersfromtheeducationalinstitutions.

The Appeals before the Apex Court in the case of

MaharashtraEktaHawkersUnionaroseoutoftheJudgmentsofthis
Courtdated5thJuly,2000and3rdMay,2001.BytheJudgmentdated5th

ba
y

July, 2000 this Court sanctioned a scheme for hawking and non
hawkingzones.TherewerevariousorderspassedbytheApexCourt
fromtime totime.Inthe order dated9th December,2003,theApex

om

Court passed elaborate directions after taking into consideration the

aforesaid directions issued in the case the Bombay Hawker's Union.
Paragraph14ofthesaidOrderreadsthus:
14.Therestrictions/conditionsonwhichthehawkersshall
dobusinessare:
(1) An area of 1 m 1 m on one side of the footpath
wherever they exist or on an extreme side of the
carriageway,insuchamannerthatthevehicularand
pedestriantrafficisnotobstructedandaccesstoshops
and residences is not blocked. We further clarify that
evenwherehawkingispermitted,itcanonlybeonone
sideofthefootpathorroadandundernocircumstances
26 of 70

::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

27

wp-224.11, pil-36.10

C
ou

rt

onbothsidesofthefootpathsorroads.We,however,
clarify thataarey/saritastalls and sugarcane vendors
wouldrequireandmaybepermittedanareaofmore
than1m1mbutnotmorethan2m1m.

(2) Hawkers must not put up stalls or place any tables,

standorsuchotherthingorerectanytypeofstructure.
Theyshouldalsonotusehandcarts.However,theymay
protect their goods from the sun, rain or wind.
Obviously, this condition would not apply
toaarey/saritastalls.

om

ba
y

ig
h

(3) Thereshouldbenohawkingwithin100metresfrom
any place of worship, holy shrine, educational
institutionsandhospitalsorwithin150metresfrom
anymunicipalorothermarketsorfromanyrailway
station. There should be no hawking on footbridges
andoverbridges.Further,certainareasmayberequired
to be kept free of hawkers for security reasons.
However, outside places of worship hawkers can be
permitted to sell items required by the devotees for
offering to the deity or for placing in the place of
worship e.g. flowers, sandalwood, candles,agarbattis,
coconutsetc.
(4) The hawkers must not create any noise or play any
instrument or music for attracting the public or the
customers.
(5) They can only sell cooked foods, cut fruits, juices
andthelike.Weareunabletoacceptthesubmission
thatcookingshouldbepermitted.Wedirectthatno
cooking of any nature whatsoever shall be
permitted.Evenwherecookedfoodorcutfruitsor
thelikearesold,thefoodmustnotbeadulteratedor
unhygienic.AllMunicipalLicensingRegulationsand
the provisions of the Prevention of Food
AdulterationActmustbecompliedwith.
(6) Hawking must be only between 7.00 a.m. and 10.00
p.m.

27 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

28

wp-224.11, pil-36.10

C
ou

rt

(7) Hawkingwillbeonthebasisofpaymentofaprescribed
fee to be fixed by BMC. However, the payment of
prescribed fee shall not be deemed to authorize the
hawkertodohisbusinessbeyondtheprescribedhours
and would not confer on the hawker the right to do
businessatanyparticularplace.

ig
h

(8) The hawkers must extend full cooperation to the

municipalconservancystaffforcleaningthestreetsand
footpaths and also to the other municipal staff for
carrying on any municipal work. They must also
cooperate with the other government and public
agencies such as BEST Undertaking, Bombay
Telephones, BSES Ltd. etc. if they require to lay any
cableoranydevelopmentwork.

om

ba
y

(9) Nohawkingwouldbepermittedonanystreetwhichis
lessthan8metresinwidth.Further,thehawkersalso
have to comply with the Development Control Rules,
thus, there can be no hawking in areas which are
exclusively residential and where trading and
commercialactivityisprohibited.Thushawkingcannot
be permitted on roads and pavements which do not
haveashoppingline.
(10) BMCshallgrantlicenceswhichwillhavephotosofthe
hawkersonthem.Thelicencemustbedisplayed,atall
times,bythehawkersontheirpersonbyclippingiton
totheirshirtorcoat.
(11)Notmorethanonememberofafamilymustbegivena
licence to hawk. For this purpose BMC will have to
computerizeitsrecords.
(12) Vendingofcostlyitemse.g.electricalappliances,video
andaudiotapesandcassettes,cameras,phonesetc.is
tobeprohibited.Intheeventofanyhawkerfoundtobe
selling such items his licence must be cancelled
forthwith.
(13) In areas other than the nonhawking zones, licences
mustbegrantedtothehawkerstodotheirbusinesson
paymentoftheprescribedfee.Thelicencesmustbefor
aperiodof1year.Thatwillbewithoutprejudicetothe
28 of 70

::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

29

wp-224.11, pil-36.10

C
ou

rt

rightoftheCommitteetoextendthelimitsofthenon
hawking zones in the interests of public health,
sanitation, safety, public convenience and the like.
Hawkinglicencesshouldnotberefusedinthehawking
zones except for good reasons. The discretion not to
grantahawkinglicenceinthehawkingzoneshouldbe
exercisedreasonablyandinpublicinterest.

ig
h

(14) Infuture,beforemakinganyalterationinthescheme,
the Commissioner should place the matter before the
Committeewhoshalltakeadecisionafterconsidering
views of all concerned including the hawkers, the
CommissionerofPoliceandmembersofthepublicoran
associationrepresentingthepublic.

om

ba
y

(15) It is expected that citizens and shopkeepers shall

participate in keeping nonhawking zones/areas free
fromhawkers.Theyshalldosobybringingtothenotice
ofthewardofficerconcernedthepresenceofahawker
in a nonhawking zone/area. The ward officer
concernedshalltakeimmediatestepstoremovesucha
hawker. In case the ward officer takes no action, a
written complaint may be filed by the
citizen/shopkeeper to the Committee. The Committee
shalllookintothecomplaintandiffoundcorrect,the
Committee will with the help of police remove the
hawker. The officer in charge of the police station
concerned is directed to give prompt and immediate
assistance to the Committee. In the event of the
Committeefindingthecomplainttobecorrectitshallso
record. On the Committee so recording an adverse
remarkrefailuretoperformhisdutywillbeenteredin
theconfidentialrecordofthewardofficerconcerned.If
morethanthreesuchentriesarefoundintherecordof
an officer it would be a ground for withholding
promotion.Ifmorethansixsuchentriesarefoundin
the records of an officer it shall be a ground for
terminationofservice.Fortheworkofattendingtosuch
complaints BMC shall pay to the Chairman a fixed
honorariumofRs10,000p.m.
(16) Theschemeframedbyuswillhaveabindingeffecton
allconcerned.Thus,apartfromthosetowhomlicences
29 of 70

::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

30

wp-224.11, pil-36.10

28.

C
ou

rt

willnowbeissued,nootherperson/bodywillhaveany
righttosquatorcarryonanyhawkingorotherbusiness
ontheroads/streets.WedirectthatBMCshallbringthis
judgmenttothenoticeofallcourtsinwhichmattersare
now pending. We are quite sure that the court(s)
concerned shall then suitably vacate/modify its
injunction/stayorder.
(emphasisadded)

Inparagraphs16ofthesaidJudgmentandorder,theApex

ig
h

Court appointed a Committee consisting of a retired Judge of the

Bombay City Civil Court and other members. The Committee was
directedtomakesitevisitsandalsohearallthepartiesconcerned.The

Committeewasdirectedtodecidewhetheraparticularroadorstreet
shouldbeahawkingzoneornot.TheCommitteewasalsodirectedto

ba
y

decide as to which hawkers can be accommodated in the hawkers'

zone.ThereisafurtherorderpassedbytheApexCourton30 th July,

om

2004inthesameCivilAppeals.Paragraphs7and8ofthesaidorderare
materialwhichreadthus:
7. Aferventpleahasbeenmadetoreconsiderourorder
quathelicensedhawkers.Havingheardthepartiesat
great length, we feel that the decision on this aspect
needstobeconsideredonlyafterthepositionregarding
totalnumberofavailablesitesbecomesavailable.The
questionwhetherthelicensedhawkerswhohavebeen
operatingforalongperiodoftimemustalsostandin
line with the others is for the present left open. The
committeesaredirectedtodecide,onaprioritybasis,

30 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

31

wp-224.11, pil-36.10

whetherthelicensedhawkerswhoareinnonhawking

rt

zonescanonaprovisionalbasisanduntilfurtherorders

beallowedtocontinueinthosezones.Ifthecommittees

C
ou

findthatinaparticularnonhawkingzonethelicensed
hawkerscannotbeallowedtocontinuetheywill,forthe
present,beshiftedintoahawkingzone.Clarifiedthat
thisarrangementisprovisionalandwillnotcreateany
rightinthelicensedhawkers.BMCtocontinuetoaccept

ig
h

thelicencefeesfromthelicensedhawkerswithanote
thatthesamewillnotinanymannerconferanyright,
titleorinterestinfavourofthehawkersasthesameis
subjecttofinalordersofthisCourt.
We, however, modify our order dated 9122003

8.

[Maharashtra Ekta Hawkers Unionvs. Municipal

Corpn.,Greater Mumbai, (2004) 1 SCC 625] by

ba
y

permittinghandicappedpersonswhohavebeengranted
licenceforrunningPCOs/Aarey/Saritastallstocontinue
to run those stalls even in nonhawking zones. No
further or new licences to be granted to any other

om

person even a handicapped person in nonhawking

zones.We,however,clarifythatalicencetorunPCO
stallswouldmeanrunningaPCOstall.Nootheractivity

canbecarriedoutfromaPCOstall.Similarly,evenin
respectofotherstalls,onlytheactivitypermittedbythe
licencecanbecarriedon.
(emphasisadded)

29.

Thereafter,thereisafurtherJudgmentandOrderpassed

bytheApexCourton12th February,2007.TheApexCourtreferredto
31 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

32

wp-224.11, pil-36.10

theNationalPolicyonUrbanStreetVendors,2009.Itrecordsthatthe

rt

StateGovernmenthasconstitutedaCommitteeforimplementationof

C
ou

thesaidpolicy.Underthefurtherorderdated30 thNovember,2010the
Apex Court discontinued the three member Committee constituted
earlier and modified the directions issued under the order dated 9 th
December,2003inclause15ofparagraph14thereofdealingwiththe

ig
h

grievancesaboutthehawkers,encroachersandunauthorisedparking
byshopowners.Ultimately,thependingAppealsweredisposedofby
theJudgmentandOrderdated9 thSeptember,2013bytheApexCourt.

TheApexCourtreferredtoStreetVendors(ProtectionofLivelihoodand
RegulationofStreetVending)Bill,2012andobservedthatuntilthesaid

ba
y

Billbecomeslaw,itwillbeappropriatetodirectthattheNationalPolicy
onUrbanStreetVendors,2009(forshortthePolicyof2009)shallbe

om

implemented throughout the country. In paragraph 16 of the said

JudgmentandOrder,forfacilitatingtheimplementationofthePolicyof
2009,variousdirectionswereissued.Paragraphs16and17ofthesaid
decisionreadthus:
16.

Forfacilitatingimplementationofthe2009Policy,we
issuethefollowingdirections:

(i)

Withinonemonthfromthedateofreceiptofcopyof
this order, the Chief Secretaries of the State
Governments and Administrators of the Union
Territoriesshallissuenecessaryinstructions/directions
totheconcerneddepartment(s)toensurethattheTown
32 of 70

::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

33

wp-224.11, pil-36.10

VendingCommitteeisconstitutedatcity/townlevelin

rt

accordancewiththeprovisionscontainedinthe2009
Policy.Forthecitiesandtownshavinglargemunicipal
constituted.
(ii)

C
ou

areas,morethanoneTownVendingCommitteemaybe

Each Town Vending Committee shall consist of

representatives of various organizations and street

ig
h

vendors/hawkers.30% of therepresentativesfrom
the category of street vendors/hawkers shall be
women.

Therepresentativesofvariousorganizationsandstreet

(iii)

vendors/ hawkers shall be chosen by the Town

VendingCommitteebyadoptingafairandtransparent

ba
y

mechanism.

(iv)

ThetaskofconstitutingtheTownVendingCommittees

om

shall becompletedwithintwomonthsoftheissueof
instructionsby theChiefSecretariesoftheStateand
theAdministratorsoftheUnionTerritories.

(v)

The Town Vending Committees shall function

strictly in accordance with the 2009 Policy and the
decisionstakenbyitshallbenotifiedintheprintand
electronicmediawithinnextoneweek.

(vi)

The Town Vending Committees shall be free to

divide themunicipalareasinvending/hawkingzones
and subzones and for this purpose they may take

33 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

34

wp-224.11, pil-36.10

assistanceofexpertsin the field.Whileundertaking

rt

this exercise, the Town Vending Committees

constituted for the cities of Delhi and Mumbai shall

C
ou

takeintoconsiderationtheworkalreadyundertaken
by the municipalauthoritiesinfurtherance of the
directions given by this Court. The municipal
authorities shall also take action in terms of

(vii)

ig
h

Paragraph4.2(b)and(c).

All street vendors/hawkers shall be registered in

accordance with paragraph 4.5.4 of the 2009 Policy.
Once registered, the street vendor/hawker, shall be

entitled to operate in the area specified by the Town

VendingCommittee.

ba
y

(viii) Theprocessofregistrationmustbecompletedby the

municipal authorities across the country within four
months of the receipt of the direction by the Chief
UnionTerritories.

(ix)

The State Governments/Administration of the Union

Territories and municipal and local authorities shall

om

Secretaries of the States andAdministratorsofthe

take all the steps necessary for achieving the

objectivessetoutinthe2009Policy.
(x)

TheTownVendingCommitteeshallmeeteverymonth
and ensureimplementationoftherelevantprovisions
ofthe2009Policyand,inparticular,paragraph4.5.1
(b)and(c).
34 of 70

::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

35

(xi)

wp-224.11, pil-36.10

Physicallychallengedwhowereallowedtooperate

rt

PCOsintermsofthejudgmentreportedin(2009)
17 SCC 231 shall be allowed to continuetorun

C
ou

theirstallsandsellothergoodsbecauserunning
of PCOs. is no longer viable. Those who were
allowed to run Aarey/Sarita shall be allowed to
continuetooperatetheirstalls.

TheStateGovernments,theAdministrationofthe

ig
h

(xii)

UnionTerritoriesandmunicipalauthoritiesshallbefree
toamendthe legislative provisionsand/or delegated
legislation to bring them in tune with the 2009

Policy. If there remains anyconflictbetweenthe

2009 Policy and the municipal laws, insofar as they
relatetostreetvendors/hawkers,thenthe2009Policy

ba
y

shallprevail.

(xiii)

Henceforth,thepartiesshallbefreetoapproach

om

the jurisdictional High Courts for redressal of their

grievance and the direction, if any, given by this
Court in the earlier judgments / orders shall not
impededisposalofthecaseswhichmaybefiledbythe
aggrievedparties.

(xiv) TheChiefJusticesoftheHighCourtsarerequestedto
nominate a Bench to deal with the cases filed for
implementationofthe2009Policyanddisputesarising
outofitsimplementation. TheconcernedBenchshall
regularlymonitorimplementationofthe2009Policy

35 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

36

wp-224.11, pil-36.10

(xv)

rt

andthelawwhichmaybeenactedbytheParliament.
All the existing street vendors/hawkers operating

C
ou

across thecountryshall be allowed to operate

till the exercise ofregistration and creation of
vending/hawkingzonesiscompletedintermsof
the2009Policy.Oncethatexerciseiscompleted,
theyshallbeentitledtooperateonlyinaccordance

ig
h

with the orders/directions of the concerned

TownVendingCommittee.
(xvi)

The provisionsofthe 2009Policyandthe directions

contained hereinabove shall apply to all the

municipalareasinthecountry.

ba
y

17.Theaforesaiddirectionsshallremainoperative
till an appropriate legislation is enacted by
Parliamentoranyothercompetentlegislature and

om

isbroughtintoforce.
(Emphasissupplied)

THE PROVISIONSOF THESTREET VENDORSACTAND

IMPACTTHEREOF
30.

WemustnoteherethattheprovisionsoftheStreetVendors

Actwerebroughtintoforcewitheffectfrom1st May,2014underthe
notification of the same date published in the Government of India
GazetteofthesamedatebytheMinistryofHousingandUrbanPoverty

36 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

37

wp-224.11, pil-36.10

AlleviationoftheUnionofIndia.Therefore,inviewofparagraph17of

rt

theJudgmentandOrderoftheApexCourtdated9thSeptember,2013,

C
ou

thedirectionsissuedinparagraph16thereofandevenearlierdirections
issuedfromtimetotimeinthesaidcaseofMaharashtraEktaHawkers
Unionceasedtoapplyfrom1stMay,2014andnowwhatoccupiesthe
fieldfromthesaiddateistheStreetVendorsAct.

Therefore,itwillbenecessarytomakeareferencetothe

ig
h

31.

provisionsoftheStreetVendorsAct.Thedefinitionsinclauses(l),(m)

and(n)ofSection2arematerialwhichreadthus:
(l)streetvendormeansapersonengagedinvendingof
articles, goods, wares, food items or merchandise of

ba
y

everydayuseorofferingservicestothegeneralpublic,
inastreet,lane,sidewalk,footpath,pavement,public
parkoranyotherpublicplaceorprivatearea,froma

om

temporarybuiltupstructureorbymovingfromplaceto
place and includes hawker, peddler, squatter and all
othersynonymoustermswhichmaybelocalorregion
specific; and the words street vending with their
grammatical variations and cognate expressions, shall
beconstruedaccordingly;

(m)TownVendingCommitteemeansthebodyconstituted
bytheappropriateGovernmentunderSection22;
(n)vendingzonemeansanareaoraplaceoralocation
designated as such by the local authority, on the
recommendationsoftheTownVendingCommittee,for

37 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

38

wp-224.11, pil-36.10

thespecificusebystreetvendorsforstreetvendingand

rt

includes footpath, side walk, pavement, embankment,

portionsofastreet,waitingareaforpublicoranysuch

C
ou

place considered suitable for vending activities and

providingservicestothegeneralpublic.
32.

Sections3and4arealsomaterialwhichreadthus:

3. Survey of street vendors and protection from

ig
h

eviction or relocation.(1) The Town Vending

Committee shall, within such period and in such
mannerasmaybespecifiedinthescheme,conducta
survey of all existing street vendors, within the area

under its jurisdiction, and subsequent survey shall be

ba
y

carriedoutatleastonceineveryfiveyears.

(2)

The Town Vending Committee shall ensure that

allexistingstreetvendors,identifiedinthesurvey,are
accommodatedinthevendingzonessubjecttoanorm

om

conformingtotwoandhalfpercentofthepopulation
ofthewardorzoneortownorcity,asthecasemaybe,
inaccordancewiththeplanforstreetvendingandthe

holdingcapacityofthevendingzones.

(3)

Nostreetvendorshallbeevictedor,asthecase

maybe, relocated till the survey specifiedunder sub

section (1) has been completed and the certificate of
vendingisissuedtoallstreetvendors.
4.

Issue of certificate of vending.(1) Every street

38 of 70

::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

39

wp-224.11, pil-36.10

vendor, identified under the survey carried out under

rt

subsection(1)ofSection3,whohascompletedtheage
offourteenyearsorsuchageasmaybeprescribedby

C
ou

the appropriate Government, shall be issued a

certificateofvendingbytheTownVendingCommittee,
subject to such terms and conditions and within the
periodspecifiedintheschemeincludingtherestrictions
specifiedintheplanforstreetvending:

ig
h

Providedthataperson,whetherornotincluded
under the survey under subsection (1) of Section 3,
whohasbeenissuedacertificateofvendingbeforethe
commencementofthisAct,whetherknownaslicenceor

anyotherformofpermission(whetherasastationary
vendororamobilevendororunderanyothercategory)
shallbedeemedtobeastreetvendorforthatcategory

ba
y

for the period for which he has been issued such

certificateofvending.

(2) Where,intheinterveningperiodbetweentwosurveys,

om

anypersonseekstovend,theTownVendingCommittee
may grant a certificate of vending to such person,
subjecttothescheme,theplanforstreetvendingand
theholdingcapacityofthevendingzones.

(3) Where the number of street vendors identified under

subsection (1) or the number of persons seeking to
vendundersubsection(2)aremorethantheholding
capacityofthevendingzoneandexceedsthenumberof
personstobeaccommodatedinthatvendingzone,the
TownVendingCommitteeshallcarryoutadrawoflots
for issuing the certificate of vending for that vending
39 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

40

wp-224.11, pil-36.10

zoneandtheremainingpersonsshallbeaccommodated

rt

in any adjoining vending zone to avoid relocation.

The rights and obligations of the Street Vendors are

C
ou

33.

specifiedinChapterIII. Sections12to16formingpartofChapterIII
readthus:

12.Rightsofstreetvendor.(1)Everystreetvendorshall

ig
h

havetherighttocarryonthebusinessofstreetvending
activitiesinaccordancewiththetermsandconditions
mentionedinthecertificateofvending.
(2)Notwithstandinganythingcontainedinsubsection

(1),whereanyareaorspace,asthecasemaybe,has
beenearmarkedasnovendingzone,nostreetvendor

ba
y

shallcarryoutanyvendingactivitiesinthatzone.
13. Right of street vendor for a new site or area on
relocation.Every street vendor, who possesses a
certificate of vending, shall, in case of his relocation

om

underSection18,beentitledfornewsiteorarea,asthe
casemaybe,forcarryingouthisvendingactivitiesas
may be determined by the local authority, in
consultationwiththeTownVendingCommittee.

14. Duty of street vendors.Where a street vendor

occupiesspaceonatimesharingbasis,heshallremove
hisgoodsandwareseverydayattheendofthetime
sharingperiodallowedtohim.
15. Maintenance of cleanliness and public hygiene.
Every street vendor shall maintain cleanliness and
publichygieneinthevendingzonesandtheadjoining
40 of 70

::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

41

wp-224.11, pil-36.10

areas.

rt

16. Maintenance of civic amenities in vending zone in

good condition.Every street vendor shall maintain

C
ou

civicamenitiesandpublicpropertyinthevendingzone
ingoodconditionandnotdamageordestroyorcause
anydamageordestructiontothesame.
34.

ChapterIVdealswithrelocationandevictionofstreet

ig
h

vendors.Section18thereofisrelevantwhichreadsthus:
18. Relocation or eviction of street vendors.(1) The
local authority may, on the recommendations of the
TownVendingCommittee,declareazoneorpartofitto

be a novending zone for any public purpose and

relocatethestreetvendorsvendinginthatarea,insuch

ba
y

mannerasmaybespecifiedinthescheme.
(2)Thelocalauthorityshallevictsuchstreetvendorwhose
certificateofvendinghasbeencancelledunderSection

om

10orwhodoesnothaveacertificateofvendingand
vendswithoutsuchcertificate,insuchmannerasmay
bespecifiedinthescheme.

(3) No street vendor shall be relocated or evicted by the

localauthorityfromtheplacespecifiedinthecertificate
ofvendingunlesshehasbeengiventhirtydays'notice
forthesameinsuchmannerasmaybespecifiedinthe
scheme.
(4) Astreetvendorshallberelocatedorevictedbythelocal
authorityphysicallyinsuchmannerasmaybespecified
41 of 70

::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

42

wp-224.11, pil-36.10

in the scheme only after he had failed to vacate the

C
ou

expiryoftheperiodspecifiedinthenotice.

rt

place specified in the certificate of vending, after the

(5) Everystreetvendorwhofailstorelocateorvacatethe
place specified in the certificate of vending, after the
expiry of the period specified in the notice, shall be
liable to pay for every day of such default, a penalty

ig
h

whichmayextenduptotwohundredandfiftyrupees,
asmaybedeterminedbythelocalauthority,butshall
notbemorethanthevalueofgoodsseized.
Chapter VII deals with the constitution and functions of

35.

TownVendingCommittee.UnderSubsection(1)ofSection22,itisan

ba
y

obligationoftheAppropriateGovernmenttoestablishaTownVending
Committeeineachlocalauthority.Clause(c)ofSection2defineslocal

om

authority which includes a Municipal Corporation or a Municipal

Council or a Nagar Panchayat, by whatever name called, or the
CantonmentBoard,asthecasemaybe.
36.

Section26formingpartofChapterVIIismaterialwhich

readsthus:
26.Publicationofstreetvendor'scharteranddatabase
and carrying out of social audit.(1) Every Town
Vending Committee shall publish the street vendor's
charter specifying therein the time within which the
certificateofvendingshallbeissuedtoastreetvendor
42 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

43

wp-224.11, pil-36.10

andthetimewithinwhichsuchcertificateofvending

C
ou

withinthetimelimitspecifiedtherein.

rt

shallberenewedandotheractivitiestobeperformed

(2) Every Town Vending Committee shall maintain up to

date records of registered street vendors and street
vendorstowhomcertificateofvendinghasbeenissued
containingnameofsuchstreetvendor,stallallottedto

ig
h

him,natureofbusinesscarriedoutbyhim,categoryof
streetvendingandsuchotherparticularswhichmaybe
relevanttothestreetvendors,insuchmannerasmaybe
prescribed.

(3) Every Town Vending Committee shall carry out social

auditofitsactivitiesundertheActortherulesorthe

ba
y

schemesmadethereunderinsuchformandmanneras
maybespecifiedinthescheme.

om

37.

Section33oftheStreetVendorsActisalsomaterialwhich

givesoverridingeffecttotheAct.Sections36and38arealsomaterial
whichreadthus:
33.Acttohaveoverridingeffect.Theprovisionsofthis
Act shall have effect notwithstanding anything
inconsistentthereincontainedinanyotherlawforthe
timebeinginforceorinanyinstrumenthavingeffectby
virtueofanylawotherthanthisAct.
36. Power to make rules.(1) The appropriate
Government shall, within one year from the date of
commencementofthisAct,bynotification,makerules
43 of 70

::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

44

wp-224.11, pil-36.10

forcarryingouttheprovisionsofthisAct.

rt

(2) Inparticularandwithoutprejudicetothegeneralityof
theforegoingpower,suchrulesmayprovideforallor

C
ou

anyofthefollowingmatters,namely

(a) theageforstreetvendingundersubsection(1)of
Section4;

(b) theform,periodandmanneroffilingappealwith
11;

ig
h

thelocalauthorityundersubsection(1)ofSection

(c) thepersonsandtheexperiencesuchpersonshall
haveundersubsection(1)ofSection20;

(d) the form and the manner of making application

undersubsection(2)ofSection20;

ba
y

(e) themannerofverificationandenquiryonreceipt
ofgrievanceordispute,thetimewithinwhichand
the manner in which steps for redressal of

om

grievancesandresolutionofdisputesmaybetaken
undersubsection(3)ofSection20;

(f) theform,thetimewithinwhichandthemannerin
whichanappealmaybefiledundersubsection(4)
ofSection20;
(g) thetimewithinwhichandthemannerinwhichan
appealshallbedisposedofundersubsection(5)
ofSection20;
(h) the term of, and the manner of constituting, the
TownVendingCommitteeundersubsection(1)of
Section22;
44 of 70

::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

45

wp-224.11, pil-36.10

(i) thenumberofothermembersoftheTownVending

rt

Committeeunderclause(b)ofsubsection(2)of

C
ou

Section22;

(j) the manner of elections among street vendors

underclause(d)ofsubsection(2)ofSection22;

(k) theallowancestoChairpersonandmembersunder
subsection(3)ofSection22;

ig
h

(l) the time and place for meeting, procedure for

transactionofbusinessatmeetingsandfunctions
tobedischargedbytheTownVendingCommittee
underSection23;

(m) the manner and the purpose for which a person

maybeassociatedundersubsection(1)ofSection

ba
y

24;
(n) theallowancestobepaidtoanassociatedperson
undersubsection(2)ofSection24;

om

(o) theotheremployeesofTownVendingCommittee
underSection25;

(p) themannerofmaintaininguptodaterecordofall
streetvendorsundersubsection(2)ofSection26;
(q) thereturnstobefurnishedunderSection30;
(r) the manner of publishing summary of scheme
undersubsection(2)ofSection38.
(3) Every rule and scheme made by the Central
GovernmentunderthisActshallbelaid,assoonasmay
beafter itismade,before eachHouse ofParliament,
45 of 70

::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

46

wp-224.11, pil-36.10

whileitisinsession,foratotalperiodofthirtydays

rt

whichmaybe comprisedin one session or in two or

moresuccessivesessions,andif,beforetheexpiryofthe

C
ou

session immediately following the session or the

successive sessions aforesaid, both Houses agree in
makinganymodificationintheruleorschemeorboth
Houses agree that the rule or scheme should not be
made, the rule or scheme shall thereafter have effect

ig
h

onlyinsuchmodifiedformorbeofnoeffect,asthe
casemaybe;so,however,thatanysuchmodificationor
annulmentshallbewithoutprejudicetothevalidityof
anythingpreviouslydoneunderthatruleorscheme.

(4) Every rule or scheme made by the State Government

underthisActshall,assoonasmaybeafteritismade,

ba
y

belaidbeforeeachHouseoftheStateLegislaturewhere
therearetwoHouses,andwherethereisoneHouseof
theStateLegislature,beforethatHouse.

om

38.Schemeforstreetvendors.(1)Forthepurposesof
this Act, the appropriate Government shall frame a
scheme, within six months from the date of
commencementofthisAct,afterdueconsultationswith
thelocalauthorityandtheTownVendingCommittee,
by notification, which may specify all or any of the
mattersprovidedintheSecondSchedule.
(2) A summary of the scheme notified by the appropriate
Governmentundersubsection(1)shallbepublishedby
thelocalauthorityinatleasttwolocalnewspapersin
suchmannerasmaybeprescribed.
46 of 70

::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

47

38.

wp-224.11, pil-36.10

As it appears from Subsection (1) of Section 36 the

rt

AppropriateGovernmentwhichistheStateGovernmentinthepresent

C
ou

case was under an obligation to make Rules for carrying out the
provisionsoftheStreetVendorsActwithinaperiodofoneyearfrom1 st
May,2014.Clauses(h)and(i)ofSubsection(2)ofSection36confer
rulemakingpowerontheAppropriateGovernmenttoprovideforthe

ig
h

termandthemannerofconstitutingtheTownVendingCommitteesand
the number of other members of the Town Vending Committee as
providedinclause(d)ofSubsection(2)ofSection22.Hence,unless

the Rules are framed, the Town Vending Committees cannot be

constitutedbytheAppropriateGovernment.Section38(1)enjoinsthe

ba
y

Appropriate Government to frame a scheme within a period of six

months from the date of commencement of the Street Vendors Act

om

providingforalloranyofthematterssetoutintheSecondSchedule.
PerusaloftheSecondScheduleshowsthattheschemeshouldprovide
forthemannerofconductingsurvey,theperiodwithinwhichcertificate
ofvendingshallbeissuedtotheStreetVendorsetc.
Section21isalsomaterialwhichreadsthus:
21. Plan for street vending.(1) Every local authority
shall,inconsultationwiththeplanningauthorityandon
therecommendationsoftheTownVendingCommittee,
onceineveryfiveyears,prepareaplantopromotethe
vocation of street vendors covering the matters
47 of 70

::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

48

wp-224.11, pil-36.10

rt

containedintheFirstSchedule.
(2) The plan for street vending prepared by the local

C
ou

authority shall be submitted to the appropriate

Government for approval and that Government shall,
before notifying the plan, determine the norms
applicabletothestreetvendors.

Thus, every local authority is under an obligation to

ig
h

39.

prepare a plan to promote vocation of street vendors covering the

matterscontainedintheFirstSchedule.Clause(1)ofFirstSchedule

containsmandatoryrequirementsfortheplanforstreetvending.First
Schedulereadsthus:

om

ba
y

(1)Theplanforstreetvendingshall,
(a) ensurethatallexistingstreetvendorsidentifiedin
the survey, subject to a norm conforming to two
andhalf per cent of the population of the ward,
zone, town or city, as the case may be, are
accommodatedintheplanforstreetvending;
(b) ensuretherightofcommuterstomovefreelyand
usetheroadswithoutanyimpediment;
(c) ensurethattheprovisionofspaceorareaforstreet
vendingisreasonableandconsistentwithexisting
naturalmarkets;
(d) takeintoaccountthecivicfacilitiesforappropriate
useofidentifiedspacesorareasasvendingzones;
(e) promote convenient, efficient and cost effective
distributionofgoodsandprovisionofservices;
(f) such other matters as may be specified in the
schemetogiveeffecttotheplanforstreetvending.
(2) Theplanforstreetvendingshallcontainallofthe
48 of 70

::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

49

wp-224.11, pil-36.10

followingmatters,namely

rt

(a) determinationofspatialplanningnormsforstreet
vending;

C
ou

(b) earmarkingofspaceorareaforvendingzones;

(c) determinationofvendingzonesasrestrictionfree
vending zones, restricted vending zones and no
vendingzones;

ig
h

(d) makingofspatialplansconduciveandadequatefor
theprevalentnumberofstreetvendorsinthatcity
ortownandalsoforthefuturegrowth,byadopting
suchnormsasmaybenecessary;
(e) consequential changes needed in the existing
masterplan,developmentplan,zonalplan,layout
planandanyotherplanforaccommodatingstreet
vendorsinthedesignatedvendingzones.

(3) Declarationofnovendingzoneshallbecarriedoutby
the plan for street vending, subject to the following
principles,namely

ba
y

(a) anyexistingmarket,oranaturalmarketasidentified
under the survey shall not be declared as a no
vendingzone;

om

(b) declaration of novending zone shall be done in a

mannerwhichdisplacestheminimumpercentageof
streetvendors;
(c) overcrowding of any place shall not be a basis for
declaring any area as a novending zone provided
thatrestrictionsmaybeplacedonissuingcertificate
ofvendinginsuchareastopersonsnotidentifiedas
streetvendorsinthesurvey;
(d) sanitaryconcernsshallnotbethebasisfordeclaring
anyareaasanovendingzoneunlesssuchconcerns
canbesolelyattributedtostreetvendorsandcannot
beresolvedthroughappropriatecivicactionbythe
localauthority;
(e) tillsuchtimeasthesurveyhasnotbeencarriedout
and the plan for street vending has not been
formulated, no zone shall be declared as a no
vendingzone.
49 of 70

::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

50

40.

wp-224.11, pil-36.10

Subclause (e) of clause 3 of First Schedule clearly

rt

mandatesthattillsuchtimethesurveyhasnotbeencarriedoutandthe

declaredasnovendingzone.

41.

C
ou

plan for street vending has not been formulated, no zone shall be

FromtheperusaloftheprovisionsoftheStreetVendorsAct

ig
h

andconsideringtheSchemethereofitappearstobeacompleteCode
which makes provisions for determining the rights and liabilities of

StreetVendorswithinthemeaningofclause(l)ofSection2.

42.

AfterhavingperusedtheprovisionsoftheStreetVendors

ba
y

Act,the mandatorystepswhicharerequiredtobe takenthereunder

canbesummarizedasunder:

om

A]

The Scheme for street vendors was required to be

framed by the State Government in accordance with
section38withinaperiodofsixmonthsfrom1 st May,
2014. The said scheme as specified in the Second
Schedule must provide for the manner of conducting
survey,the periodwithin which certificates of vending
shallbeissuedtothestreetvendorsidentifiedunderthe
surveyandthetermsandconditionsthereof.Thescheme
must also provide for the manner of evicting street

50 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

51

wp-224.11, pil-36.10

vendor,theproceduretobefollowedforevictingstreet

rt

vendor,formandmannerofcarryingoutsocialauditas

C
ou

wellastheprovisionforrelocationofthestreetvendors
carrying on business in nonvending zones in the
vendingzones.
B]

Within one year from 1st May, 2014, the Rules were

ig
h

required to be framed in accordance with Subsection

(1)ofSection36.
C]

After the Rules are made, under Subsection (1) of

Section22,theAppropriateGovernmentisrequiredto
constitute Town Vending Committees in each local

ba
y

authority.

D]

As per Subsection (1) of Section 3 Town Vending

Committeeisunderanobligationtoconductasurveyof

om

existingstreetvendorswithintheareaofitsjurisdiction.
Thesurveyisrequiredtobecarriedoutwithinsucha
periodandinsuchamannerasmaybeprovidedinthe
schemeframedunderSection38.

E]

Afterthesurveyiscarriedout,itistheobligationofthe
TownVendingCommitteetoensurethatalltheexisting
street vendors identified in the survey are
accommodatedinvendingzones.

51 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

52

F]

wp-224.11, pil-36.10

Everystreetvendoridentifiedinthesurveycarriedoutin

rt

accordancewithSubSection(1)ofSection3isrequired

C
ou

tobeissuedacertificateofvendingbytheTownVending
Committee, subject to such terms and conditions and
withintheperiodspecifiedintheschemeincludingthe
plan for street vending. A person whether or not

ig
h

includedinthesurveyunderSubsection(1)ofSection3
whohasbeenissuedacertificateofvendingbeforethe
commencement of the Street Vendors Act, whether

knownaslicenseoranyotherformofpermissionshall
bedeemedtobeastreetvendorforthatcategoryforthe

ba
y

periodforwhichhehasbeenissuedsuchcertificateof
vending.

G]

On the basis of the recommendations of the Town

om

Vending Committee, every local authority is under an

obligationtoprepareaplanforstreetvendingoncein

everyfiveyearswhichisrequiredtobeapprovedbythe
AppropriateGovernment.
43.

Unfortunately, if the State Government is lagging far

behind as far as the implementation of the Street Vendors Act is

concerned. Theletterdated4 thAugust,2014placedonrecordbythe
learned AGP addressed by the Joint Secretary of the Urban
52 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

53

wp-224.11, pil-36.10

Development Department shows that neither the scheme for street

rt

vendors as contemplated by Subsection (1) of Section 38 has been

C
ou

formulatednortheRuleshavebeenframedunderSubsection(1)of
Section36.ThetimeforframingtheschemecontemplatedbySection
38expiredon31stOctober,2014andthetimeprovidedinSubsection
(1)ofSection36forframingtheRulesexpiredon31 st April,2014.

ig
h

Thus,boththemandatoryprovisionshavenotbeencompliedwithby
theStateGovernmentwithinthetimespecifiedtherein.AstheRules
havenotbeenframed,TownVendingCommitteeshavenotbeenbeen

appointed. As Town Vending Committees have not been appointed,

planforstreetvendingintermsofSubsection(1)ofSection21hasnot

ba
y

been prepared. As the Town Vending Committees have not been

appointed, a survey under Subsection (1) of Section 3 cannot be

om

carriedoutandconsequentlycertificatesofvendingcannotbeissued.
Therefore,inviewofSubsection(3)ofSection3,noexistingstreet
vendorason1stMay2014canbeevictedorrelocated.However,those
StreetVendorswhohaveillegallystartedoperatingafter1 stMay,2014
are not protected by SubSection (3) of Section 3 and such Street
Vendorswillhavetobeevicted.TheexistingStreetvendorscannotbe
evicted or relocated till the surveyis carried out in accordancewith
Subsection(1)ofSection3andthecertificatesofvendingareissuedin
terms of Subsection (1) of Section 4. Considering the fact that the

53 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

54

wp-224.11, pil-36.10

objectoftheStreetVendorsActistoprotecttheUrbanStreetVendors,

44.

C
ou

rt

Subsection(3)ofSection3willhavetobeheldasmandatory.

We have already made a reference to the definition of

street vendor in clause (l) of Section 2. street vendor means a

person engaged in vending of articles, goods, wares, food items or
merchandiseofeverydayuseorofferingservicestothegeneralpublic,

ig
h

in a street, lane, side walk, footpath, pavement or any other public

place. Such a street vendor can operate from a temporary built up

structure or by moving from place to place. Clause (l) of Section 2

clarifiesthatstreetvendorincludeshawker,peddler,squatterandall

ba
y

othersynonymoustermswhichmaybelocalorregionspecific.There
aretwocategoriesofpersonswhocanbeincludedinthecategoryof
street vendors. One category is of persons engaged in vending of

om

articles, goods, wares, food items or merchandise of everyday use.

Second category of persons is offering services to the general public
suchasrunningtelephonebooths.
45.

Thequestioniswhatisthemeaningofvending.Thisisin

thecontextofthefactthatthepersonengagedinvendingoffooditems
alsobecomesastreetvendor.Wehaveperusedthedictionarymeaning
of the word vending in various dictionaries. In the Oxford English
dictionary,themeaningoftheverbvendistooffersmallitemsfor

54 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

55

wp-224.11, pil-36.10

sale.InMerriamWebsterdictionary,themeaningoftheverbvendis

rt

to sell especially as a hawker or peddler. The meaning of the word

C
ou

vendinginCambridgedictionaryisthesellingofgoods. Thus,the

vendingcontemplatessale.Bynostretchofimagination,thevendingof
fooditemswillincludepreparationand/orcookingoffooditems. In
ouropinionapersonwhocooksorpreparesfoodinthestallandsellsit

ig
h

is not included in the definition of street vendor as the definition

includesapersonwhoisengagedinvendingofarticles,fooditemsora
person who is offering services to general public. In fact all the

directionsissuedbytheApexCourtwhichwehaveconsideredearlier,
provide that a hawker is not entitled to cook food at the place of

ba
y

hawkingandsellitthere.Thus,astreetvendorcansellonlyreadyfood
items,butheisnotentitledtocookormakefooditemsattheplaceof

om

vending.Cookingoffoodbyastreetvendorattheplaceofvendingis
notatallcontemplatedbytheStreetVendorsAct.Thus,thoseStreet
Vendors who are cooking food at the place of vending will not be
coveredbythedefinitionoftheStreetVendorsundertheStreetVendors
Act.Hence,suchvendorsarenotentitledtotheprotection underthe
StreetVendorsAct.

46.

Forpreparationandcookingoffooditemsforsale,licenses

are required under various statutes. Therefore, persons engaged in

55 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

56

wp-224.11, pil-36.10

cookingand/orpreparationoffooditemsinastreet,lane,sidewalk,

rt

footpath,pavementoranyotherpublicplaceeitherfromatemporary

C
ou

builtstructureorbymovingfromplacetoplacehavenotbeenincluded
in the definition of Street Vendor under clause (l) of Section 2 and

therefore,suchpersonisnotprotectedundertheStreetVendorsAct.
Only those vendors who are otherwise covered by the definition of

ig
h

StreetVendorswhoareonlysellingreadyfooditemswillbeprotected
undertheSubsection(3)ofSection3andSubsection(l)ofSection12
oftheStreetVendorsAct.However,ifthepersonswhoarecookingor

preparing food are otherwise holding licenses required by various

statutes and are otherwise lawfully carrying out business will be

ba
y

protected provided their structures are lawful. But they will not be
protectedundertheStreetVendorsActunlessanduntiltheygiveupthe

om

activityofcooking.Therefore,actionwillhavetobeinitiatedagainst
theStreetVendorswhoarecookingfoodattheplaceofvending.
WHETHERTHEPROVISIONSOFTHESTREETVENDORS
ACTOVERRIDETHECOURTORDERSINOPERATIONAS
ON1STMAY,2014
47.

Now,weturntotheargumentcanvassedinWritPetition

No.224of2011basedonthedirectioncontainedintheorderofthe
ApexCourtdated9thDecember,2003whichlaysdownthathawkingis
notpermittedfromanyplaceofeducationalinstitutionsorhospitalsor
placeofworshipwithinadistanceof100meters.Thecontentionisthat
56 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

57

wp-224.11, pil-36.10

as the said direction has not been disturbed while passing final

rt

Judgment and Order dated 9th December, 2013, no hawking can be

C
ou

permitted within the said prohibited distance of 100 meters. All the
orderswhichwerepassedfromtimetotimeinCivilAppealNos.4156
4157 of 2002 merged into final Judgment and Order dated 9th
September,2013.Paragraph17ofthefinalJudgmentandOrderdated

ig
h

9th September,2013specificallyprovidesthatthedirectionscontained
in the said Judgment and Order shall remain operative only till the
appropriatelegislationisenactedbythecompetentlegislatureandis

brought into force. Accordingly, the Street Vendors Act has been
brought into force with effect from 1 st May, 2014. Therefore, the

ba
y

directionsissuedundertheorderdated9 th September,2013including
the directions issued from time to time during the pendency of the

om

Appealsarenotoperativewitheffectfrom1 stMay,2014.Therefore,we
areunabletoacceptthecontentionthattheconditionimposedbythe
directionscontainedinclause3ofparagraph14oftheorderdated9 th
December,2003continuestooperateaftertheStreetVendorsActcame
intoforce.WhileimplementingtheprovisionsoftheStreetVendorsAct
by prescribing novending zones such restrictions such as ban on
vending within a distance of an educational institution etc. can be
alwaysimposed.Alltheexistingstreetvendorswhoarecoveredbythe
definitionunderclause(l)ofSection2oftheStreetVendorsActare

57 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

58

wp-224.11, pil-36.10

entitled to protection under Subsection (3) of Section 3 with effect

C
ou

rt

from1stMay,2014.
48.

Anotherissuecanvassedisregardingtheenforceabilityof

orderdated21stJanuary,2002inWritPetitionNo.1799of2001which
wehavealreadyquoted.Wemustmakeareferencetocommunication
dated18thJune,2000issuedbytheMumbaiMunicipalCorporationto

ig
h

theSecretaryofthefirstPetitionerinWritPetitionNo.224of2011.The
saidcommunicationreadsthus:

om

ba
y

To,
TheSecretary,
ShriVileParleKelvaniMandal,
ShriBhaidasManganlalSabhagrihaBldg.,
N.S.RoadNo.1,J.V.P.D.Scheme,
VileParle(W),
Mumbai56.

Sir,

1.

Sub: Beautificationoffootpathbyupper3widthand
storm water drain as per the Area Plan along
with Mithibai N.M.A.J. College of Commerce
VIDCOS.B.M.PolyclinicandD.J.Road,Sanghvi
College and Engineering on Irla Society Road,
BhaktivedantaSwamiV.L.MehtaRoad,VileParle
(W).

With reference to your letter dated 16 th June,

2000inconnectionwiththeabovementionedsubject.I
ampleasedtoinformyouthatthereisnoobjectionto
beautythefootpathandSWDraininfrontoftheabove
said Colleges of Shri Vile Parle (W) Kelvani Mandal
subjecttothefollowingtermsandconditionsexcluding
3stallstowhomNOC'shasbeenissuedbyM.C.G.M.
ThatyoushallpayRe.1/ascompensationperannum
andRe.2/asaSecurityDeposit.
58 of 70

::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

59

wp-224.11, pil-36.10

ThatyoushallnotutilizetheportionoffootpathS.W.
Drain beautified for the purpose of canvassing your
tradeofbusinessforadvertisement.However,youmay
provide titles bearing your trade on mono letters of
standardsize.

3.

ThatyoushallherebyagreethatthesaidfootpathS.W.
Drainshallbemadeavailableforexclusionuseofthe
pedestrianstraffic.

4.

Thatnohawkersonpayment,dwellingshallbeallowed
toutilizethispartoffootpath/stormwaterdrain.

5.

Thatyoushallbeautifythefootpathbyusing2width
xW.W.DrainatyourowncostbyFlowerbedsasper
thisofficeplanattached.

6.

That you shall reinstate the footpath/ S.W.D. to the

originalconditionincaseofanypublicutilitydigup
the above portion of footpath for doing any
undergroundwork.

om

ba
y

ig
h

C
ou

rt

2.

49.

7.

That you shall submit undertaking on Rs.20/ Stamp

Paperperproformaattached.

8.

The above permission is granted upto one year on

yearlyrenewalbasis.

9.

That you shall clean the storm water drain before

starting the work of beautification, and to maintain
regularly.
For enforcing the permission granted under the said

communication dated 18th June, 2000 that Writ Petition No.1799 of

2001wasfiledbythefirstPetitionerinWritPetitionNo.224of2011.
ThedirectionofthisCourtunderorderdated21 stJanuary,2002tothe
RespondentsincludingtheMumbaiMunicipalCorporationistoremove

59 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

60

wp-224.11, pil-36.10

hawkers on the footpaths near the premises of the first Petitioner's

rt

educational institutions. The said order is in respect of the

C
ou

beautification of the footpath which was permitted under

communicationdated18th June,2000.Thequestioniswhethereffect

canbegiventothesaidorderofthisCourtinthelightoftheprovisions

50.

ig
h

oftheStreetVendorsAct.

Section33givesoverridingeffecttotheprovisionsofthe

StreetVendorsActovertheprovisionsofanyotherlawforthetime

beinginforceoranyotherinstrumenthavingeffectbyvirtueofany
other law. However, Section 33 does not override the orders of the

ba
y

Courtwhichwerepassedearlierandtherefore,thesaidorderscanbe
implemented notwithstanding the applicability of the Act. Therefore,

om

orderdated21stJanuary,2002passedinWritPetitionNo.1799of2001
canbealwaysimplementedsubjecttoprohibitoryorderspassedbythe
CityCivilCourtoranyotherCourtoflaw.Thesaidorderhasbecome
finalaseventhevendorswhoarefullyawareoftheorderhavenot
challengedthesame.

51.

We have perused the photographs on record in boththe

Petitions.Fromthephotographswefindsubstanceinthesubmissionsof
thePetitionersthatinmanystalls,foodisbeingcookedandsomeofthe

60 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

61

wp-224.11, pil-36.10

stalls have been virtually converted into eateries. Therefore, there is

rt

meritinthecontentionthatsuchillegalactivitiesareleadingtotraffic

C
ou

congestionandarecausinginconveniencetothelocalresidents.Some

ofthesestallshavebeenprotectedduringthependencyoffollowing
SuitsintheCityCivilCourt:

ig
h

L.C.SuitNo.2418of2002
L.C.SuitNo.2472of2011
L.C.SuitNo.2473of2011
L.C.SuitNo.2462of2011
L.C.SuitNo.2463of2011
L.C.SuitNo.2471of2011
L.C.SuitNo.1924of2012
L.C.SuitNo.1420of2008
L.C.SuitNo.666of2011
L.C.SuitNo.2461of2011

ba
y

1.
2.
3.
4.
5.
6.
7.
8.
9.
10.
52.

Inordinarycourse,thisCourtisveryslowinpassingorders

directingtheCourtsunderthesuperintendencethisCourttodecidethe

om

matterswithinatimeboundlimit.However,consideringthegravityof
situation,weproposetodirecttheconcernedCourtstodisposeofthe
Suitwithinatimeboundframe.Moreover,thetrafficpolicewillhaveto
ensurethatduetoindiscriminateparkingofvehiclesbythecustomers
ofthestallsontheGulmoharroadandnearbystreets,trafficcongestion
isnotcreated.

53.

Asstatedearlier,thereisacompletefailureonthepartof

theStateGovernmenttoimplementtheprovisionsoftheStreetVendors
61 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

62

wp-224.11, pil-36.10

Act.We,therefore,proposetodirecttheStateGovernmenttocomeout

rt

withtheouterlimitwithinwhichcompliancewillbemade.Similarly,

C
ou

the Mumbai Municipal Corporation will have to come out with the
statement regarding the outer limit within which a plan for street
vending in terms of Subsection (1) of Section 21 shall be prepared
fromthedateonwhichTownVendingCommitteeisestablishedforthe

54.

ig
h

saidCorporation.

We have already held that persons who are cooking/

makingfooditemsinastreet,lane,sidewalk,footpath,pavementor
anyotherpublicplaceorprivateareaeitherfromatemporarybuiltup

ba
y

structure or by moving from place to place, are not covered by the

definition of street vendor under the Street Vendors Act. If such

om

personsarecarryingoutbusinessofmaking/preparingfooditemsand
selling,itisobviousthattheyarecreatinghealthhazardstothecitizens.
Immediate action of evicting the persons who are carrying out such
illegalactsofcookingandmakingfoodwillhavetobeinitiatedbythe
MumbaiMunicipalCorporationinaccordancewithlaw.Aspersonswho
arecookingormakingfoodarenotcoveredbythedefinitionofstreet
vendor,theprotectionundertheStreetVendorsActisnotavailableto
suchpersons. Aftergivinganotice,thoseStreetVendorswhodonot
stop activity of cooking/ making food items at the place of their

62 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

63

wp-224.11, pil-36.10

business within specified time can be evicted by the Municipal

rt

Corporationbydemolitionoftheirstalls.Thosestreetvendorswhoare

C
ou

cookingfoodarecausinghealthhazardstothecitizens.Theycreatedirt

andnuisance.However,ifthepersonswhoarecookingorpreparing
foodareotherwiseholdinglicensesrequiredbyvariousstatutesandare
otherwise lawfully carrying out business will be protected provided

55.

ig
h

theirstructuresarelawful.

ThereisameritinthecontentionofthesecondPetitioner

inPILNo.36of2010thatwheneveranactionisproposedtobetaken
against illegal vendors or illegal structures, it is necessary for the

ba
y

Municipal Corporation tofile caveatsin all concernedCourtsandto

furtherensurethatsuchlegalproceedingsarepromptlyandproperly

om

contested. The Municipal Corporation may consider establishing a

trackingsystemofallsuchlitigationsdealingwithillegalstructures.

55A.Beforewepartwiththejudgment,wemustquotewhat
the Apex Court held in paragraph 8 of its decision in the case of
BombayHawker'sUnion:
..the right conferred by Article 19(1)(g) of the
Constitutiontocarryonanytradeorbusinessissubject
to the provisions of clause (6) of that article, which
providesthatnothinginsubclause(g)ofArticle19(1)
63 of 70

::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

64

wp-224.11, pil-36.10

shalleffecttheoperationofanyexistinglawinsofarasit

rt

imposes, or prevents the State from making any law

imposing, in the interests of the general public,

C
ou

reasonable restrictions on the exercise of the right

conferredbythesaidsubclause.Theaffidavitsfiledon
behalfofthe respondentsshowinunmistakableterms
thattheimpugnedprovisionsoftheBombayMunicipal
Corporation Act are in the nature of reasonable

ig
h

restrictions,intheinterestsofthegeneralpublic,onthe
exerciseoftherightofhawkerstocarryontheirtradeor
business.Noonehasanyrighttodohisorhertrade
or business so as to cause nuisance, annoyance or

inconvenience to the other members of the public.

Public streets, by their very nomenclature and
definition, are meant for the use of the general

ba
y

public.Theyarenotlaidtofacilitatethecarryingon
ofprivatetradeorbusiness.Ifhawkersweretobe
concededtherightclaimedbythem,theycouldhold
thesocietytoransombysquattingonthecentreof

om

busythoroughfares,therebyparalysingallciviclife.
Indeed,thatiswhatsomeofthemhavedoneinsome
partsofthecity.Theyhavemadeitimpossibleforthe

pedestrians to walk on footpaths or even on the

streetsproperlysocalled.
(emphasisadded)

56.

Hence,wedisposeofthePetitionsbypassingthefollowing

order:

64 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

65

wp-224.11, pil-36.10

ORDER
We hold that with effect from 1 st May, 2014 the

rt

(i)

C
ou

directionsissuedbytheApexCourtfromtimetotime
inCivilAppealNos.41564157of2002(Maharashtra

Ekta Hawkers Union and others vs. Municipal

Corporation of Greater Mumbai and others) shall

ig
h

ceasetoapplyandallexistingstreetvendorsason1 st
May, 2014 who are covered by the definition of
clause(l)ofSection2oftheStreetVendorsActare

entitledtoprotectionagainstevictionandrelocation
as provided under Subsection (3) of Section 3

ba
y

thereof. No Street Vendors who were carrying on

businessason1stMay,2014andwhoarecoveredby

om

the definition of Street Vendor under clause (l) of

Section2shallbeevictedorrelocatedbytheMumbai
Municipal Corporation till the survey as specified
under SubSection (1) of Section 3 of the Street
vendors Act is carried out and the certificates of
vendingareissuedtoallStreetVendorsinaccordance
with Subsection (1) of Section 4 by the Town
VendingCommittee.Thisprotectionisapplicableonly
to those Street Vendors who were carrying on

65 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:34:59 :::

66

wp-224.11, pil-36.10

businessason1stMay2014;
ThoseStreetVendorswhohavestartedstreetvending

rt

(ii)

C
ou

after the saiddate shallbe evicted bythe Mumbai

Municipal Corporation in accordance with law. The
actionofevictionshallbeinitiatedasexpeditiouslyas
possible;

WedeclarethataStreetVendorwhoisengagedin

ig
h

(iii)

cookingorpreparationoffooditemsinastreet,lane,
side walk, footpath, pavement, public park or any

other public place or private place either from a

temporarybuiltstructureorbymovingfromplaceto

ba
y

placeisnotcoveredbythedefinitionofstreetvendor
underclause(l)ofSection2oftheStreetVendorsAct
andconsequentlysuchavendorshallnotbeentitled

om

toprotectionunderSubsection(3)ofSection3so
longasheisindulgingincookingorpreparationof
fooditems;

(iv)

We, therefore, direct the Mumbai Municipal

Corporation to initiate action of eviction in
accordancewithlawagainstStreetVendorswhoare
engaged in preparation/cooking of food items in
street, lane, side walk, footpath, pavement, public

66 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:35:00 :::

67

wp-224.11, pil-36.10

parkoranyotherpublicplaceorprivateareaeither

rt

fromatemporarybuiltstructureorbymovingfrom

C
ou

place to place and who do not stop cooking or

making food within the time specified in a notice

servedtothem.Actionofevictionshallbeinitiatedby
the Mumbai Municipal Corporation after following

ig
h

due process of law against such Street Vendors

immediately on expiry of a period of two months
fromtoday;

WedirecttheMunicipalCorporationtoensurethat

(v)

when such action of eviction is proposed, caveats

ba
y

shallbefiledinappropriateCourtsandtheMunicipal
Corporation shall take prompt steps to contest the
proceeding if filed for challenging the action of

om

eviction. We direct the Municipal Corporation to

create a trackingsystem for all suchlitigationsso
thatthesamearepromptlyattendedto;

(vi)

WedirecttheTrafficPolicetotakenecessaryactionin
accordance with law for preventing indiscriminate
parkingofvehiclesbythecustomersofthestallson
thesaidGulmoharroadandnearbystreets.Sufficient
Traffic Police shall be deployed on the said roads

67 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:35:00 :::

68

wp-224.11, pil-36.10

duringtherushhours;
We direct the Principal Secretary of the Urban

rt

(vii)

C
ou

DevelopmentDepartmentoftheStateGovernmentto
fileaffidavitsettingouttheouterlimitwithinwhich
thefollowingactionsshallbecompletedbytheState
Government:

Formulation of the scheme for streetvendors

ig
h

(a)

under Subsection (1) of Section 38 of the Street

VendorsAct;

Framing of the Rules in accordance with

(b)

Section36oftheStreetVendorsAct;and

ba
y

(c)

Constitution of Town Vending Committees in

eachlocalauthority;

(viii)

ofonemonthfromtoday.Beforesettingouttheouter

om
B

Theaforesaidaffidavitshallbefiledwithinaperiod

limit,theStateGovernmentshallmakeanotethat
thetimeprovidedtotheStateGovernmentunderthe
StreetVendorsActhasexpiredlongback;
(ix)

WedirecttheMumbaiMunicipalCorporationtofile
anaffidavitsettingouttheouterlimitwithinwhich
theplanforstreetvendingshallbepreparedfromthe
date on which the Town Vending Committee is

68 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:35:00 :::

69

wp-224.11, pil-36.10

constitutedforthesaidlocalauthority.Suchaffidavit

rt

shall be filed within the period of six weeks from

C
ou

today.Thecomplianceaffidavitreportingcompliance
withthedirectionsissuedintermsofclauses(ii)and
(iv)shallbefiledonorbefore31stJanuary,2016;
(x)

Forconsideringthecomplianceaffidavitstobefiled

ig
h

by the State Government and the Municipal

Corporation, the Petition shall be listed on 21 st
December,2015;

WedirecttheMumbaiMunicipalCorporationtotake

(xi)

stepsforimplementationoforderdated21 stJanuary,

ba
y

2002inWritPetitionNo.1799of2001immediately
on expiry of a period of two months from today.

onorbefore31stJanuary,2016;

(xii)

Thesuitslistedinparagraph51abovependinginthe
CityCivilCourtatDindoshishallbedisposedofas

om

Affidavitofcomplianceonthisaspectshallbefiled

expeditiouslyaspossibleandinanyeventwithina
period of one year from. This direction be
communicated by the Registrar (JudicialI) to
concernedCourt;
(xiii)

Rule issued in the above Petitions is made partly

69 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:35:00 :::

70

wp-224.11, pil-36.10

absoluteonaboveterms.Therewillbenoorderasto

AllChamberSummonsandNoticeofMotion,ifany,
aredisposedofaccordingly.

(A.S.OKA,J)

om

ba
y

ig
h

(REVATIMOHITEDERE,J)

C
ou

(xiv)

rt

costs;

70 of 70
::: Uploaded on - 23/10/2015

::: Downloaded on - 23/10/2015 23:35:00 :::