1

2
Malayan Law Journal Reports/1981/Volume 1/LAND EXECUTVE C!MMTTEE !"
"EDERAL TERRT!R# $ %#AR&AT 'AR(ER )L"LLAN *ER'AD + ,1981- 1 MLJ ./0
+ .. De1em2er 1983
0 pa4es
,1981] 1 MLJ 234
LAND EXECUTIVE COMMITTEE OF FEDERAL TERRITORY v SYARIKAT HARPER
GILFILLAN ERHAD
FC KUALA LUMPUR
RAJA A!LAN SHAH AG LP" SYED OTHMAN # SALLEH AAS FJJ
FEDERAL COURT CIVIL APPEAL NO 1$1 OF 19%9
2 O&'()*+ 198," 22 D*&*-)*+ 198,
Administrative Law -- Declaration -- Application for declaration -- Decision of Director of
Lands and Mines that applicant must apply for change of category of land use -- No
appeal lodged against decision -- Application for declaration that applicant not required
to apply for change of category prior to application for amalgamation and subdivision --
Land endorsed for planting of fruit trees -- Block of flats erected on land -- No urisdiction
to entertain claim for declaration -- National Land !ode" ss #$%&'" (&)%('%a'" ($*" ()+ ,
)(+
Land Law -- !ondition of use of land for planting fruit trees -- -lats built on part of land --
.ale of part of land with flats -- Application for subdivision -- Necessity to apply for
change of category of land use -- National Land !ode" ss #$%&'" (&)%('%a'" ($*" ()+ ,
)(+
n t56s 1ase t5e respon7ents were t5e re46stere7 owners o8 two p6e1es o8 lan7 6n t5e
"e7eral Terr6tory9 T5e 1on76t6on o8 use en7orse7 on t5e e:tra1ts o8 t6tle was ;8ru6t trees;9
3
T5e respon7ents a4ree7 to sell a part o8 t5e sa67 lan7 on w5615 was ere1te7 a 2lo1< o8
8lats9 T5ey appl6e7 8or amal4amat6on an7 su276$6s6on o8 t5e lan7 2ut t5ey were tol7 2y
t5e D6re1tor o8 Lan7s an7 M6nes t5at t5ey s5oul7 86rst apply 8or a 15an4e o8 1ate4ory o8
lan7 use9 T5e respon7ents 767 not appeal a4a6nst t5e 7e16s6on o8 t5e D6re1tor 2ut appl6e7
2y or646nat6n4 summons 8or a 7e1larat6on t5at upon t5e true 1onstru1t6on o8 t5e Nat6onal
Lan7 Co7e t5ey are not re=u6re7 to apply 8or a 15an4e o8 1ate4ory o8 lan7 use pr6or to
t5e appl61at6on 8or amal4amat6on an7 su276$6s6on9 T5e appellants appl6e7 to set as67e
t5e or646nat6n4 summons on t5ree 4roun7s >a? t5ere was no pro$6s6on 6n t5e Nat6onal
Lan7 Co7e to ena2le t5e Court to 4rant t5e 7e1larat6on sou45t@ >2? t5e respon7ents 5a7
8a6le7 to e:er16se t5e6r r645t o8 appeal pursuant to se1t6on 018 o8 t5e Nat6onal Lan7 Co7e
an7 >1? t5e matter 1ompla6ne7 o8 was t6me+2arre7 2y $6rtue o8 se1t6on .>a? o8 t5e (u2l61
Aut5or6t6es (rote1t6on !r76nan1eA 19089 T5e learne7 tr6al Bu74e 76sm6sse7 t5e appl61at6on
o8 t5e appellants an7 t5ey appeale7 to t5e "e7eral Court9
H*./0
1) on a proper rea76n4 o8 se1t6on 018 o8 t5e Nat6onal Lan7 Co7e 6t 6s 1lear t5at
(arl6ament 2y us6n4 pla6n an7 unam264uous lan4ua4e 6nten7e7 t5e r645t to
2e e:1lus6$e o8 any ot5er mo7e o8 en8or16n4 6t9 T5e 1ourt t5ere8ore 5as no
Bur6s761t6on to enterta6n t5e 1la6m sou45t 2y t5e 7e1larat6on@
1) 6n any e$entA w5ere as 6n t56s 1ase t5e lan7 6s 5el7 un7er a an7 o8861e t6tle
an7 2y se1t6on C/>.? o8 t5e Nat6onal Lan7 Co7e t5e 6mpl6e7 1ate4ory o8 lan7
use 6s a4r61ultural an7 w56le t5e 1ont6nue7 use o8 t5e lan7 8or t5e 8lats 2u6lt
on 6t 6s law8ul un7er t5e pro$6soA 6t 6s ne1essary 8or t5e propr6etor to apply 8or
t5e 6mpos6t6on o8 a 1ate4ory o8 lan7 useA 2e8ore t5e 6ssue o8 t6tle to t5e su2+
76$6s6onal port6on9
C12*2 +*3*++*/ '(
Baraclough v Brown , /rs ,189D- AC E1C
A .ubramaniam v .M0M Muthiah !hetty ,19/0- MLJ ...
!hop !huah .eong 1oo v 2eh !hooi Nai , /rs ,19E/- MLJ 9E
4
.undaram v !hew !hoo 3hoon ,19E8- 1 MLJ 93
Metal 4ndustry 5mployees 6nion v 0egistrar of 2rade 6nions , /rs ,19DE- 1 MLJ ..3
Barnard , /rs v National Dock Labour Board , /rs ,19C/- . F* 18
-rancis v 7iewsley and 8est Drayton 6rban District !ouncil , /rs ,19E3- AC .E3
9y: ;ranite !o Ltd v Ministry of <ousing and Local ;overnment ,19E3- AC .E3
9unton , Anor v Ministry of 9ensions and National 4nsurance %No &' ,19E0- 1 All ER 008
.outh-5ast Asia -irebricks .dn Bhd v Non-Metallic Mineral 9roducts Manufacturing
5mployees 6nion , /rs ,1983- . MLJ 1EC
(=+( ( ML1 &$) at &$#
!ooper v 8ilson ,19/D- . &* /39
Dato Menteri /thman bin Baginda , Anor v Dato /mbi .yed Alwi bin .yed 4drus ,1981-
1 MLJ .9
9unton v Ministry of 9ensions ,19E/- 1 All ER .DCA .D9+.83
9asmore v /swaldthistle 6rban District !ouncil ,1898- AC /8D
!ollector of Land 0evenue" -ederal 2erritory v ;arden !ity Development Berhad ,19D9-
1 MLJ ../
FEDERAL COURT

Lim <eng .eng >"e7eral Counsel? 8or t5e appellant9
M<3 Lim > Miss ;inny .2 Lee w6t5 56m? 8or t5e respon7ent9
RAJA A!LAN SHAH AG LP
>rea7 2y %ye7 !t5man "9J9?G T5e respon7ents are t5e re46stere7 owners o8 two p6e1es o8
lan7 s6tuate7 6n Jalan Ampan4 '6l6rA 6n t5e "e7eral Terr6tory an7 1ompr6se7 6n E9M9R9
5
Nos9 .119 an7 .1.3 Lots 1CD an7 ..C9 T5e 1on76t6on o8 use en7orse7 on t5e e:tra1ts o8
t6tle 6s ;8ru6t trees;A t5at 6s 8or t5e plant6n4 o8 8ru6t trees9 !n %eptem2er .A 19E8 t5ey
entere7 6nto an a4reement w6t5 two Bo6nt pur15asers to sell a part o8 t5e sa67 lan7 on
w5615 6s ere1te7 a 2lo1< o8 t5ree 8lats9 %6n1e t5e sa67 sale was only o8 a part o8 t5e lan7A
t5e a4reement pro$67e7 8or t5e trans8er o8 a separate 7o1ument o8 t6tle to t5e pur15asers
a8ter su2+76$6s6on9 T5ey t5ere8ore su2m6tte7 to t5e Colle1tor o8 Lan7 Re$enue t5e
ne1essary 8orms to4et5er w6t5 t5e re=u6s6te plan an7 8ees 8or t5e purpose o8
amal4amat6on an7 su2+76$6s6on9 T5e Colle1tor repl6e7 to t5e respon7ents stat6n4 t5at
t5ey s5oul7 86rst apply 8or a 15an4e o8 1ate4ory o8 lan7 use pursuant to se1t6on 1.0 o8
t5e Nat6onal Lan7 Co7e 2e8ore apply6n4 8or amal4amat6on an7 su2+76$6s6on un7er
se1t6ons 1/D an7 108 o8 t5e Co7e9 T5ere ensue7 an e:15an4e o8 letters re4ar76n4 t5e
rul6n4 o8 t5e Colle1tor9 n t5e meant6me t5e respon7entsH appl61at6on was re8erre7 to t5e
Comm6ss6oner o8 Lan7s an7 M6nesA %elan4orA >now t5e D6re1tor o8 Lan7s an7 M6nesA
"e7eral Terr6tory?9 T5e D6re1torHs reply to t5e respon7ents was to t5e same e88e1t9 T5ere
was a 8urt5er e:15an4e o8 letters9 T5e 1ru: o8 t5e matter seems to 2e t5e true
6nterpretat6on o8 t5e pro$6s6ons o8 t5e Nat6onal Lan7 Co7eA part61ularly se1t6on 1.0>1?>a?9
T5e respon7ents 2y or646nat6n4 summons see< a 7e1larat6on t5at upon t5e true
1onstru1t6on o8 t5e pro$6s6ons o8 t5e Nat6onal Lan7 Co7e t5ey are not re=u6re7 to apply
8or a 15an4e o8 1ate4ory o8 lan7 use un7er se1t6on 1.0>1?>a? o8 t5e Co7e pr6or to t5e
appl61at6on 8or amal4amat6on an7 su2+76$6s6on9 'owe$erA t5ey 767 not appeal a4a6nst t5e
7e16s6on o8 t5e D6re1tor un7er se1t6on 018 o8 t5e Nat6onal Lan7 Co7e an7 e$en 68 t5ey
5a7 7one so t5ey were well out o8 t6me9
T5e appellants appl6e7 to set as67e t5e or646nat6n4 summons on t5ree 4roun7sG "6rstA
t5ere 6s no pro$6s6on 6n t5e Nat6onal Lan7 Co7e to ena2le t5e 1ourt to 4rant t5e
7e1larat6on sou45t@ se1on7lyA t5e respon7ents 5a7 8a6le7 to e:er16se t5e6r r645t o8 appeal
pursuant to se1t6on 018 o8 t5e Co7e an7A t56r7lyA t5e matter 1ompla6ne7 o8 was t6me+
2arre7 2y $6rtue o8 se1t6on .>a? o8 t5e (u2l61 Aut5or6t6es (rote1t6on !r76nan1eA 19089
T5e learne7 Bu74e 5el7 t5at apart 8rom t5e 8a1t t5at t5e pro$6s6ons o8 t5e Nat6onal Lan7
Co7e 767 not 16r1ums1r62e t5e Bur6s761t6on o8 t5e '645 Court to ma<e 26n76n4 7e1larat6ons
o8 r645tA se1t6on 00D o8 t5e Nat6onal Lan7 Co7e w5615 6s a pro1e7ural se1t6on relat6n4 to
appeal 8rom t5e 7e16s6on o8 t5e D6re1tor to t5e CourtA rea7 w6t5 !r7er C0A rule 1A o8 t5e
19CD Rules o8 t5e '645 CourtA ma<es 6t =u6te 1lear t5at t5e 1ourtHs power 6n respe1t o8
6
lan7 matters 6s not 1on8erre7 e:1lus6$ely 2y t5e Nat6onal Lan7 Co7e9 'e 8urt5er 5el7 t5at
se1t6on 018 o8 t5e Nat6onal Lan7 Co7e w5615 sets t5e t6me+l6m6t 8or an appeal to t5e '645
Court 7oes not ar6se on t5e 4roun7 t5at t5e D6re1tor 5a7 not ma7e any 7e16s6on on t5e
matter 2ut only ;a ser6es o8 re=uestsA op6n6onsA e:press6ons o8 a7$61e an7 t5reat9; n t5e
16r1umstan1es 5e 5el7 t5at as no 7e16s6on was e$er ta<enA t6me 5a7 not starte7 to run9
"or t5e purpose o8 t56s appeal 6t 6s only ne1essary to 7e167e on t5e a$a6la26l6ty o8
7e1larat6on 6n l6eu o8 t5e statutory r645t o8 appeal ena1te7 2y se1t6on 018 o8 t5e Nat6onal
Lan7 Co7e9 Ie are sat6s86e7 t5at t5ere was a 7e16s6on 8rom w5615 an a44r6e$e7 party
may appeal to t5e '645 Court un7er t5e se1t6on9 T5e se1t6on rea7sG
;0189 >1? Any person or 2o7y a44r6e$e7 2y any 7e16s6on un7er t56s A1t o8 t5e
%tate Comm6ss6onerA t5e Re46strar or any Colle1tor mayA at any t6me w6t56n
t5e per6o7 o8 t5ree mont5s 2e46nn6n4 w6t5 t5e 7ate on w5615 6t was
1ommun61ate7 to 56mA appeal t5ere8rom to t5e 1ourt9;
t 6s sa67 2y t5e appellants t5at t5e Nat6onal Lan7 Co7e 2e6n4 a 1reature o8 statute an7
pro$676n4 8or spe16al pro1e7ure relat6n4 to appeals on matters perta6n6n4 to 6tA 7e1laratory
rel6e8 6s not a$a6la2le to t5e appellants9 T5e 1ases o8 Baraclough v Brown , /rs ,189D-
AC E1C@ A .ubramaniam v .M0M Muthiah !hetty ,19/0- MLJ ...@!hop !huah .eong
1oo v 2eh !hooi Nai , /rs ,19E/- MLJ 9E@ .undaram v !hew !hoo 3hoon ,19E8- 1 MLJ
93@ an7 Metal 4ndustry 5mployees 6nion v 0egistrar of 2rade 6nions , /rs ,19DE- 1
MLJ ..3 were 16te7 6n support o8 t5e propos6t6on t5at w5en an appeal 8rom an
a7m6n6strat6$e 7e16s6on 6s e:1lus6$ely pro$67e7A resort 1annot 2e 5a7 to a 7e1laratory
rel6e89 n Baraclough v> Brown , /rs>" supraA t5e 'ouse o8 Lor7s 5el7 t5at t5e pla6nt688sH
15o61e o8 t5e '645 Court as t5e 8orum 8or t5e re1o$ery o8 t5e 1ost o8 remo$al o8 a s56p
sun< 6n t5e R6$er !use was m6s1on1e6$e7 as a spe16al pro1e7ure 8or t5e en8or1ement o8
t5e r645t was 1on8erre7 only on t5e 1ourt o8 summary Bur6s761t6on9 n A>.ubramaniam v>
.>M>0>M> Muthiah !hetty" supraA 7e1laratory rel6e8 was 5el7 not to 2e a$a6la2le to a party
76ssat6s86e7 w6t5 t5e 7e16s6on o8 t5e Colle1tor w5ere an appeal t5ere8rom was pro$67e7
un7er se1t6on ./D o8 t5e Nat6onal Lan7 Co7e to t5e 1ourt9n !hop !hua .eong 1oo v>
2eh !hooi Nai , /rs>" supraA 7e1laratory rel6e8 was not 4rante7 s6n1e t5e Control o8 Rent
!r76nan1e 19CE e:pressly pro$67e7 8or a r645t o8 appeal to t5e '645 Court9 n
7
.undaram$9 !hew !hoo 3hoon" supraA 6t was 5el7 t5at t5e only re1ourse o8 a party
76ssat6s86e7 2y t5e 7e16s6on o8 t5e Colle1tor un7er se1t6on /D o8 t5e Nat6onal Lan7 Co7e
was to appeal a4a6nst t5e 7e16s6on to t5e 1ourt an7
(=+( ( ML1 &$) at &$?
7e1laratory su6t was m6s1on1e6$e79 n Metal 4ndustry 5mployees v> 0egistrar of 2rade
6nions , /rs>" supraA an appl61at6on 8or a 7e1larat6on to s5ow t5at on a proper
1onstru1t6on o8 se1t6on .>.? o8 t5e Tra7e Un6ons !r76nan1e 19C9A t5e Re46strar o8 Tra7e
Un6ons 5a7 no power to 7e167e on t5e el64626l6ty o8 any 4roup o8 wor<ers to Bo6n t5e un6on
was 76sm6sse7 2y t56s 1ourt on t5e 4roun7 t5at 6t la1<e7 Bur6s761t6on as t5e statutory
reme7y o8 appeal to t5e M6n6ster e:1lu7e7 t5e 7e1laratory Bur6s761t6on o8 t5e '645 Court9
!n t5e ot5er 5an7 t5e respon7ents 1onten7 t5at t5ere 6s not56n4 6n t5e pro$6s6ons o8 t5e
Nat6onal Lan7 Co7e to pre$ent t5em 8rom 1om6n4 to t5e 1ourt to see< 7e1laratory rel6e8@
1lear wor7s are ne1essary to oust t5e Bur6s761t6on o8 t5e 1ourt9 T5e 8ollow6n4 1ases were
16te7G Barnard , /rs v National Dock Labour Board , /rs ,19C/- . F* 18@ -rancis v
7iewsley and 8est Drayton 6rban District !ouncil , /rs ,19E3- AC .E3@ 9y: ;ranite !o
Ltd v Ministry of <ousing and Local ;overnment ,19E3- AC .E3@ 9unton , Anor v
Ministry of 9ensions and National 4nsurance %No &' ,19E0- 1 All ER 008@.outh 5ast Asia
-ire Bricks .dn Bhd v Non-Metallic Mineral 9roducts Manufacturing 5mployees 6nion ,
/rs ,1983- . MLJ 1EC9
n Barnard@s 1aseA supraA t5e lo1al 2oar7 5a7 no aut5or6ty to 7ele4ate 6ts =uas6+Bu7616al
76s16pl6nary 8un1t6ons to t5e port mana4er w5o 5a7 purportly suspen7e7 t5e pla6nt688s
8rom wor<A t5e or646nal not61es o8 suspens6on were t5ere8ore a null6tyA an7 t5e 7e16s6ons
o8 t5e appeal tr62unal 6n a886rm6n4 t5e suspens6on were e=ually a null6ty9 Alt5ou45
certiorari was t5e appropr6ate reme7y an7 t5e pla6nt688s 1oul7 5a$e 6n$o<e7 6t well w6t56n
t6meA t5ere was no way 6n w5615 t5ey 1oul7 5a$e 76s1o$ere7 t5at t5e6r suspens6on was a
null6tyA as t5ere was no 76s1o$ery an7 6nspe1t6on 6n pro1ee76n4s 2y way o8 certiorari>
T5at le8t t5e pla6nt688s w6t5out a reme7yA an7 6t was 6n t5ose spe16al 16r1umstan1es t5at
t5e 1ourt too< t5e l6ne t5at 6t 5a7 t5e power to 4rant a 7e1larat6on 6n or7er to pre$ent an
6nBust61e to t5e pla6nt688s9 T5at le7 Denn6n4 L9J9 to say at pa4e 01G ; <now o8 no l6m6t to
t5e power o8 t5e 1ourt to 4rant a 7e1larat6on e:1ept su15 l6m6t as 6t may 6n 6ts 76s1ret6on
6mpose upon 6tsel89; E=ually 6n !ooper v 8ilson ,19/D- . &* /39 spe16al 16r1umstan1es
e:6ste7 w5615 ren7ere7 certiorari 6ne8861a16ous@ t5e pla6nt688 1oul7 not 5a$e 1la6me7 2y
8
way o8 certiorari t5e sum w5615 t5e Iat15 Comm6ttee 5a7 wron48ully 7e7u1te7 8rom 56s
pay9 A 7e1larat6on was 4rante7 6n l6eu o8 certiorari>
n -rancis $9 7iewsley" supraA t5e 1ourt 7e1lare7 t5e en8or1ement not61e re=u6r6n4 t5e
pla6nt688 to 1ease us6n4 t5e lan7 as a 1ara$an par< 6n$al67 as 6t was 2ase7 upon a
8un7amentally 8alse 2as6s o8 8a1t@ t5e 8a1t t5at 5e 5a7 8a6le7 to appeal a4a6nst t5e
en8or1ement not61e to a 1ourt o8 summary Bur6s761t6on 767 not 2ar 56m 8rom apply6n4 to
t5e 1ourt 8or a 7e1laratory rel6e8 as t5e 6n761at6ons 6n se1t6on ./>0? o8 t5e Town an7
Country (lann6n4 A1tA 190DA 767 not 1onta6n 1lear wor7s to t5at e88e1t9 n 9y: ;ranite $9
Ministry of <ousing" supraA t5e pla6nt688 su11ess8ully sou45t 7e1larat6on t5at t5ey were
not re=u6re7 to see< a lo1al 1oun16lHs appro$al to 7e$elop t5e6r lan7A alt5ou45 t5ere was
an alternat6$e statutory r645t o8 appeal to t5e lo1al plann6n4 aut5or6ty9 T5e 'ouse o8 Lor7s
5el7 t5at t5e 1ourtHs Bur6s761t6on 1oul7 not 2e ta<en away 6n t5at 6n76re1t manner9 V6s1ount
%6mon7s sa67A at pa4e .8EG
;t 6s a pr6n16ple not 2y any means to 2e w56ttle7 7own t5at t5e su2Be1tHs
re1ourse to 'er MaBestyHs 1ourts 8or t5e 7eterm6nat6on o8 56s r645ts 6s not to
2e e:1lu7e7 e:1ept 2y 1lear wor7s9 T5at 6sA as M1Na6r J9 1alle7 6t 6n -rancis
v 7iewsley and 8est Drayton 6rban District !ouncil >19CD? . F* 1/EA a
H8un7amental ruleH 8rom w5615 woul7 not 8or my part san1t6on any
7eparture9 t must 2e as<e7A t5enA w5at 6s t5ere 6n t5e A1t o8 190D w5615
2ars su15 re1ourse9;
4n 9unton v> Ministry of 9ensions and National 4nsurance %No> &'" supraA t5e 1ourt 5el7
t5at a 2are 7e1larat6on 1oul7 not =uas5 a $al67 2ut erroneous 7e16s6onA t5at 6sA an error o8
law w6t56n Bur6s761t6on9 n t5at 1ase t5e pla6nt688s lost t5e6r employment as a result o8 str6<e
a1t6on 2y some o8 t5e6r 8ellow+wor<ers9 T5e6r appl61at6on 8or unemployment 2ene86ts was
reBe1te7 2y t5e Nat6onal nsuran1e Comm6ss6oner on t5e 4roun7 t5at t5ey 5a7 not
a77u1e7 su88616ent e$67en1e to sat6s8y 56m t5at t5ey were not support6n4 t5e str6<e9 T5ey
sou45t 7e1larat6ons t5at on t5e 8a1ts as 8oun7 2y t5e Comm6ss6oner 5e 5a7 1ome to a
wron4 7e16s6on 6n po6nt o8 law9 T5e 1ourt 5el7 t5at 68 6t ma7e a 2are 7e1larat6onA t5en t5e
Comm6ss6onerHs 7e16s6on woul7 st6ll su2s6stA an7 as lon4 as t5e Comm6ss6onerHs 7e16s6on
stan7sA ;6t woul7 5e out o8 5armony w6t5 all aut5or6ty to 5a$e two 1ontrary 7e16s6ons
2etween t5e same part6es on t5e same 6ssues o2ta6ne7 2y 7688erent pro1e7ures9; T5e
9
1ourt 5a7 no Bur6s761t6on to 6mpu4n su15 a 7e16s6on 2y merely 4rant6n4 a 2are
7e1larat6on9
.outh 5ast Asia -ire Bricks" supraA was 1on1erne7 w6t5 t5e pro$6s6ons o8 se1t6on .9>/?
>a? o8 t5e n7ustr6al Relat6ons A1t 19ED ++ w5et5er certiorari woul7 l6e to =uas5 an awar7
o8 t5e n7ustr6al Court 8or error o8 law on t5e 8a1e o8 t5e re1or79 t 6s not 6n po6nt9
T5us 6t 1an 2e seen t5at t5e mo7ern use o8 7e1laratory Bu74ment 5as alrea7y 7e$elope7
6nto t5e most 6mportant means o8 as1erta6n6n4 t5e le4al powers o8 pu2l61 aut5or6t6es 6n
t5e 6ntr61ate m6:ture o8 pu2l61 an7 pr6$ate enterpr6se w5615 6s 2e1om6n4 a 76st6n1t6$e
8eature o8 our l68e9 *ut we must a77 a warn6n4 note t5at 6ts use must not 2e 1arr6e7 too
8ar9 T5e power to 4rant 7e1laratory Bu74ment 6n l6eu o8 t5e prero4at6$e or7ers or statutory
rel6e8s must 2e e:er16se7 w6t5 1aut6on9 T5e power must 2e e:er16se7 ;spar6n4ly;A w6t5
;4reat 1are an7 Bealousy;9 sa67 6n Dato Menteri /thman bin Baginda , Anor v Dato
/mbi .yed Alwi bin .yed 4drus ,1981- 1 MLJ .9 t5at t5e power to 4rant a 7e1larat6on
s5oul7 2e e:er16se7 w6t5 a proper sense o8 respons626l6ty an7 a8ter a 8ull real6Jat6on t5at
Bu7616al pronoun1ements ou45t not to 2e 6ssue7 unless t5ere are 16r1umstan1es t5at
properly 1all 8or t5e6r ma<6n49 *eyon7 t5at t5ere 6s no le4al 6n5626t6on to t5e 4rant o8
7e1laratory Bu74ment9 T5at 6s 1ons6stent w6t5 t5e att6tu7e o8 t5e 1ourts 6n t56s 1ountry9 To
some 6t may appear t5at Bust61e 6s 2e6n4 7en6e7 2y a t6m67 an7 1onser$at6$e approa159
T5ey are wron49 Cons6sten1y ma<es 8or 1erta6ntyA an7 t56s 1ourt 2e6n4 at t5e 1entre o8
t5e le4al system 6n t56s 1ountryA 6s respons62le 8or t5e sta26l6tyA t5e 1ons6sten1y an7 t5e
pre761ta26l6ty o8 t5e a7m6n6strat6on o8 law9
T5e present appeal must 2e 7eterm6ne7 upon a
(=+( ( ML1 &$) at &$*
1ons67erat6on o8 t5e terms o8 t5e Nat6onal Lan7 Co7e9 As was state7 2y D6plo1< L9J9 6n
9unton v Ministry of 9ensions ,19E/- 1 All ER .DCA .D9+.83 G
; 7o not w6s5 6t to 2e t5ou45t t5atA w6t5out 8urt5er 1are8ul e:am6nat6onA
ne1essar6ly assent to t5e propos6t6on t5at a 7e1larat6on l6es as an alternat6$e
reme7y w5ere$er certiorari woul7 l6e9 t56n< t5at 6t must 7epen7 or may at
any rate 7epen7A on t5e statutory terms 6n w5615 Bur6s761t6on 6s 1on8erre7 on
t5e 6n8er6or tr62unal an7 on t5e statutory e88e1t o8 6ts 7e16s6on9;
10
"6rst o8 all we 5a$e to see t5e nature o8 t5e 1la6m9 t 6s an a1t6on 8or a 7e1larat6on t5at
1on$ers6on 6s not ne1essary 2e8ore su2+76$6s6on9 T5at 6s a =uest6on o8 law 2y $6rtue o8 a
statutory pro$6s6on 6n se1t6on 1.0 o8 t5e Nat6onal Lan7 Co7e9 8 t5e rele$ant aut5or6ty
1omm6ts an error 6n t5e 6nterpretat6on o8 t5e se1t6onA t5en an a44r6e$e7 party 5as a r645t
o8 appeal to t5e '645 Court un7er se1t6on 018 o8 t5e Co7e9 (arl6ament 5as on t5e
4roun7 o8 pu2l61 pol61y 8oun7 t5at t5at 6s a Bust an7 ne1essary r645t9 *ut 6n t5e same
se1t6on (arl6ament 5as also ena1te7 a spe16al pro1e7ure o8 en8or16n4 t5at r645t9 8 t5e
r645t 5a7 2een s6mply 1reate7 an7 no spe16861 met5o7 o8 en8or16n4 6t 5a7 2een pro$67e7
8orA t5e e:6st6n4 law 6tsel8 woul7 5a$e pro$67e7 a met5o7 t5rou45 t5e 1ourt alrea7y
6n$este7 w6t5 Bur6s761t6on to 7eterm6ne a 1la6m o8 t5at nature9 *ut a spe16861 met5o7
5a$6n4 2een 1reate7 2y pro$676n4 a t6me+l6m6t w6t56n w5615 t5e r645t may 2e pursue7A 6t
2e1omes a =uest6on w5et5er t5at met5o7 6s e:1lus6$e or not9 T5at 7epen7sA not upon
any r6467 ruleA 2ut upon t5e 6ntent6on o8 (arl6ament appear6n4 8rom t5e Co7e9
As a 4eneral rule w5ere a statute 1reates a new o2l64at6on an7 pro$67es a spe16al mo7e
o8 en8or16n4 6tA no ot5er 1ourt 5as Bur6s761t6on to en8or1e t5at o2l64at6on9 T5e 1ase
4enerally re8erre7 toA as esta2l6s56n4 t5at rule 6s 9asmore v /swaldtwistle 6rban District
!ouncil ,1898- AC /8D9 Ie =uote 8rom t5e spee15 o8 t5e Earl o8 'als2ury L9C9G
;T5e pr6n16ple t5at w5ere a spe16861 reme7y 6s 46$en 2y a %tatuteA 6t t5ere2y
7epr6$es t5e person w5o 6ns6sts upon a reme7y o8 any ot5er 8orm o8 reme7y
t5an t5at 46$en 2y t5e %tatuteA 6s one w5615 6s $ery 8am6l6ar an7 w5615 runs
t5rou45 t5e law9 t56n< Lor7 Tenter7en a11urately states t5at pr6n16ple 6n t5e
1ase o8 Doe v Bridges >1 * K A7 80D at p 8C9?9'e saysG Hw5ere an A1t
1reates an o2l64at6on an7 en8or1es t5e per8orman1e 6n a spe1686e7 mannerA
we ta<e 6t to 2e a 4eneral rule t5at per8orman1e 1annot 2e en8or1e7 6n any
ot5er manner9H T5e wor7s w5615 t5e learne7 Ju74eA Lor7 Tenter7enA uses
t5ere appear to 2e str61tly appl61a2le to t56s 1ase9 T5e o2l64at6on w5615 6s
1reate7 2y t56s %tatute 6s an o2l64at6on w5615 6s 1reate7 2y t5e %tatute an7
2y t5e %tatute alone9 t 6s not56n4 to t5e purpose to say t5at t5ere were ot5er
%tatutes w5615 1reate7 s6m6lar o2l64at6onsA 2e1ause all t5ose %tatutes are
repeale7@ you must ta<e your stan7 upon t5e %tatute 6n =uest6onA an7 t5e
%tatute w5615 1reates t5e o2l64at6on 6s t5e %tatute to w5615 one must loo< to
see 68 t5ere 6s a spe1686e7 reme7y 1onta6ne7 6n 6t9 T5ere 6s a spe1686e7
11
reme7y 1onta6ne7 6n 6tA w5615 6s an appl61at6on to t5e proper )o$ernment
7epartment9;
n Baraclough $9 Brown , /rs>" supraA Lor7 'ers15ell sa67 >pa4e E19?G
;T5e only r645t 1on8erre7 6s Hto re1o$er su15 e:penses 8rom t5e owner o8
su15 $essel 6n a 1ourt o8 summary Bur6s761t6on9H 7o not t56n< t5e appellant
1an 1la6m to re1o$er 2y $6rtue o8 t5e %tatuteA an7 at t5e same t6me 6ns6st
upon 7o6n4 so 2y means ot5er t5an t5ose pres1r62e7 2y t5e %tatute w5615
alone 1on8ers t5e r645t9;
Lor7 Iatson sa67 >pa4e E..?G
;T5e r645t an7 t5e reme7y are 46$en uno flatuA an7 t5e one 1annot 2e
76sso16ate7 8rom t5e ot5er9 *y t5ese wor7s t5e le46slature 5asA 6n my
op6n6onA 1omm6tte7 to t5e summary 1ourt e:1lus6$e Bur6s761t6onA not merely to
assess t5e amount o8 e:penses to 2e repa67 to t5e un7erta<erA 2ut to
7eterm6ne 2y w5om t5e amount 6s paya2le@ an7 5as t5ere8oreA 2y pla6n
6mpl61at6onA ena1te7 t5at no ot5er 1ourt 5as any aut5or6ty to enterta6n or
7e167e t5ese matters9;
Ie now as< oursel$esA w5at 6s t5ere 6n t5e Nat6onal Lan7 Co7e w5615 2ars 7e1laratory
rel6e89 %e1t6on 018 o8 t5e Co7e must now 2e loo<e7 at9 8 on a proper rea76n4 o8 6t lea7s
one to t5e 1on1lus6on t5at 6t 6s t5e 6ntent6on o8 (arl6ament to 1reate t5e r645t a2solutely
an7 6n7epen7ently o8 any spe16861 8orm o8 reme7yA t5e respon7entsH a1t6on 6s well
ma6nta6ne79 8 on t5e ot5er 5an7 t5e proper 6nterpretat6on 6s t5at t5e r645t an7 t5e reme7y
are uno flatuA t5at t5ey are not mutually e:1lus6$eA t5at t5ey are part an7 par1el o8 t5e
reme7yA t5en t5e a1t6on 6s m6s1on1e6$e79
Rea76n4 se1t6on 018 o8 t5e Co7eA we are sat6s86e7 t5at t5e latter 6s t5e 1orre1t
6nterpretat6on9 'a$6n4 re4ar7 to t5e spe16al pro$6s6on 8or l6m6t6n4 t5e t6me w6t56n w5615 to
en8or1e t5e r645tA t5e 6n761at6ons are t5at (arl6ament 5as 2y us6n4 pla6n an7
unam264uous lan4ua4e 6nten7e7 t5e r645t to 2e e:1lus6$e o8 any ot5er mo7e o8 en8or16n4
6t9 T5e t6me+l6m6t 6s t5e 8oun7at6on o8 t5e r645t 46$en 6n t5e se1t6on9 t 6s 6n t5e 5645est
12
7e4ree 6mpro2a2le t5at t5e per6o7 o8 t5ree mont5s as a l6m6tat6on woul7 5a$e 2een
6nserte7 68 an 6n7e86n6te per6o7 were 6nten7e7 to 2e 46$en9 T5e per6o7 o8 t5ree mont5s 6s
o2$6ously 8or t5e purpose o8 pre$ent6n4 stale 1la6ms9 8 t5e 1ontrary 6s susta6na2leA t5en
t5e respon7ents are allowe7 to see< to en8or1e t5e6r statutory r645t 2y a met5o7 ot5er
t5an t5at pres1r62e7 2y t5e Co7e 1reat6n4 6t9
"or t5ese reasons we are o8 t5e $6ew t5at t5e 1ourt 5as no Bur6s761t6on to enterta6n t5e
1la6m sou45t 2y t5e 7e1larat6on an7 t5e appeal must 2e allowe7 w6t5 1osts 5ere an7
2elow9
Alt5ou45 we 8eel 1ompelle7 to allow t5e appeal on t5e 4roun7 6n761ate7A 6t may 2e
sat6s8a1tory to t5e part6es to <now t5atA 6n t5e l645t o8 t5e re1ent 7e16s6on o8 t56s 1ourtA
w5615 6s 26n76n4 on t5e '645 CourtA t5at 6sA t5e 1ase o8 !ollector of Land 0evenue"
-ederal 2erritory v ;arden !ity Development Berhad ,19D9- 1 MLJ ../A we arr6$e7 at
t5e 1on1lus6on t5at t5e same result must 5a$e 8ollowe7 e$en 68 t5e =uest6on o8
Bur6s761t6on 5a7 2een 7eterm6ne7 t5e ot5er way9 Un8ortunately t5e attent6on o8 t5e '645
Court was not 7rawn to t5at 1aseA ne6t5er party allu76n4 to 6t9 T5e 8a1ts t5ere were not
4reatly 76ss6m6lar9 T5e lan7owners 5el7 a Re46stry t6tle o8 a p6e1e o8 town lan79 A
su2stant6$e 5ouse 5a7 2een 2u6lt on t5e lan79 T5e lan7owners 7es6re7 to ere1t an7 t5ey
767 ere1t a more su2stant6al 2u6l76n49 *ut t5ere was no 1ate4ory o8 lan7 use 6mpose7 on
t5e t6tle9 t 6s 5owe$er t5e 1lear 6ntent6on o8 t5e Nat6onal Lan7 Co7e t5at t5e use o8 lan7
6n t5e 1ountry s5oul7 2e 1lass686e7 6nto one o8 t5ree usesA $6J9 a4r61ulturalA 2u6l76n4 or
6n7ustr6al9 To a156e$e un68orm6ty o8 1lass6861at6onA 6t 5as to ma<e spe16861 pro$6s6ons 8or
t5e 1on$ers6on o8 lan7 al6enate7 2e8ore t5e 1ommen1ement o8 t5e A1tA 69e9A t5e Co7eA
6nto t5e system9 T5ese pro$6s6ons are 6n se1t6ons C/ an7 C09 T5e rele$ant se1t6on 8or our
purpose 6s t5e 8ormer se1t6on9 !t5er t5an lan7 w5615 6mme76ately 2e8ore t5e
1ommen1ement o8 t5e A1t 6s
(=+( ( ML1 &$) at &$+
su2Be1t to an e:press 1on76t6on re=u6r6n4 6ts use 8or a part61ular purposeA all lan7 w5615
at t5e 1ommen1ement o8 t5e A1t 6s 1ountry lan7 or town or $6lla4e lan7 5el7 un7er Lan7
!8861e t6tle 2e1omes su2Be1t at t5e 1ommen1ement o8 t5e A1t to an 6mpl6e7 1on76t6on t5at
6t s5all 2e use7 8or a4r61ultural purposes only an7 all ot5er lan7 t5at 6s 5el7 un7er
Re46stry t6tle s5all 2e1ome su2Be1t to an 6mpl6e7 1on76t6onA e:presse7A 1ur6ously 2ut
purposelyA 6n a ne4at6$e manner ;t5at 6t s5all 2e use7 ne6t5er 8or a4r61ultural nor 8or
13
6n7ustr6al purposes9; E:press pro$6s6ons e:6st 6n t5e se1t6on 8or t5e 1ont6nue7 use o8 t5e
lan7 to w5615 6t 5a7 2een put pr6or to t5e 1ommen1ement o8 t5e A1t9 %u15 1ont6nue7 use
woul7 not 2e unlaw8ul9
"rom t56s 6mpos6t6on o8 a 1ate4ory o8 use 2y statutory 6mpl61at6onA 6t 8ollows t5at
w5ene$er 6t 6s 7es6re7 to use t5e lan7 7688erently 8rom t5at to w5615 t5e lan7 6s 8or t5e
t6me 2e6n4 su2Be1t to >6n t5e 1ase o8 lan7 al6enate7 2e8ore t5e 1ommen1ementA 6t woul7
2e t5e 6mpl6e7 1on76t6on 6mpose7 2y se1t6on C/?A t5e propr6etor must apply 8or alterat6on
o8 t5e 1ate4ory o8 lan7 use un7er t5e re=u6rements o8 se1t6on 1.09 T56s 1ourt a11or76n4ly
5el7 6n ;arden !ity" supraA t5at s6n1e t5e t6tle was ;ne6t5er 8or a4r61ultural nor 8or
6n7ustr6al purposes; an7 t5ere 6s no ne1essary 1onse=uen1e t5at 6t was 8or t5e only ot5er
purposeA $6J9 8or 2u6l76n4 purposesA 6t was 6n1um2ent on t5e propr6etor to apply un7er t5e
se1on7 part o8 se1t6on 1.0>a? 8or t5e 6mpos6t6onA not t5e alterat6onA o8 a 1ate4ory o8 use
to w5615 t5e lan7 woul7 2e put9
I5ere t5e lan7 as 6n t56s 1ase 6s 5el7 un7er a Lan7 !8861e t6tle an7 2y se1t6on C/>.?A t5e
6mpl6e7 1ate4ory o8 lan7 use 6s a4r61ultural an7 w56le t5e 1ont6nue7 use o8 t5e lan7 8or
t5e 8lats 2u6lt on 6t 6s law8ul un7er t5e pro$6soA t5e 6ssue o8 t6tle to t5e su2+76$6s6onal
port6onA sou45t 2y t5e respon7entsA 1annot 1ont6nue a use not <nown to t5e Nat6onal
Lan7 Co7e or 7elay or 8rustrate t5e 6mpl6e7 system o8 lan7 use 2y any 1ontent6on t5at
t5e new t6tle 7oes not nee7 to 5a$e 6mpose7 on 6t one o8 t5e t5ree re1o4n6Je7 1ate4or6es
o8 lan7 use9
/rder accordingly>
%ol616torsG .hearn Delamore , !o>