Panaji: The Goa nightclub where a deadly fire killed 25 people in early December was built illegally on a salt pan and allowed to operate without a valid trade licence, pointing to serious lapses and alleged collusion at multiple official levels, a government-constituted magisterial inquiry has found.

The report, made public by the state government on Wednesday, said the ill-fated structure stood in the middle of a salt pan and was “not permissible under any law”.

The fire at ‘Birch by Romeo Lane’, a nightclub located in Arpora village in North Goa, occurred on the night of 6 December and claimed the lives of tourists and staff members. According to the inquiry, the establishment continued to function illegally despite lacking a valid licence, and no action was taken by the local panchayat to seal the premises.

“The premises continued to run illegally without a valid trade licence and no action was taken by the Village Panchayat to seal the property,” the report said, noting that Section 72-A of the Goa Panchayat Raj Act empowers authorities to seal such establishments.

The inquiry report, placed before a review meeting chaired by Chief Minister Pramod Sawant in the presence of senior officials, stated that a revised site sketch “depicts the hexagonal structure at the middle of salt pan/water body”.

“This clearly establishes that the structure is situated at the middle of the salt pan/water body which is not permissible to be erected under any law in force either now or earlier. Converting salt pan is in violation of Section 32 of the Land Revenue Code as well as Coastal Zone Regulations,” it observed.

The report noted that the Arpora-Nagoa village panchayat issued an establishment licence on 16 December 2023 to “Being GS Hospitality Goa Arpora LLP” to run a bar and restaurant-cum-nightclub, valid until 31 March 2024. The licence was not renewed thereafter.

Panchayat secretary Raghuvir Bagkar told the inquiry panel that although he was aware the licence had not been renewed, he had “not informed any other line department who have relied on trade licence issued by the Panchayat and granted their permissions/licences”.

Village sarpanch Roshan Redkar also admitted that the panchayat neither sealed the premises nor informed other departments about the cancellation of licences. “Therefore, it establishes their collusion with the owners of this property in keeping the restaurant running illegally,” the report said, adding that conduct rules were violated.

The inquiry flagged alleged forgery and procedural violations in the 2023 licence application, noting that entries such as “H No 502/1-RT8; Bar & nightclub” appeared to have been added later in different ink. Several mandatory documents, including approved building plans, photographs and land records, were missing.

According to the report, the application was received on 11 December 2023, approved by the panchayat through a resolution on 14 December, and the final certificate was issued on 16 December 2023 in what the inquiry described as a “hasty” manner.

In his statement, the Panchayat Secretary admitted, “I have not checked the house number while giving trade licence to the restaurant in the hexagonal structure which was valid for one year.”

The inquiry also recorded that multiple complaints relating to noise pollution and parking were received between January 2024 and December 2025, but were repeatedly closed with remarks stating “nothing found on the spot”. It further highlighted non-compliance with directions of the Bombay High Court at Goa regarding inspections and night patrolling in the area.

A police report cited in the inquiry said fireworks were organised at the nightclub “without taking proper care and caution” and without adequate fire safety equipment, triggering the blaze. The report also noted the absence of emergency exits on both the ground and deck floors, and that the club was operating without valid permissions.

The investigation further revealed alleged forged police clearance documents and tampering of licence instruments to insert a house number.

The case is being investigated under multiple sections of the Bharatiya Nyaya Sanhita (BNS), including culpable homicide not amounting to murder, acts endangering life due to negligence, negligent conduct with respect to fire, forgery, and criminal conspiracy.

Police have so far arrested eight people, including three owners of the nightclub. Among those arrested are Delhi-based businessmen and brothers Saurabh and Gaurav Luthra, who fled to Thailand hours after the tragedy and were deported to India on 17 December.

Five Goa government officials have also been suspended in connection with the fire.