Full Judgement
Indore Development Authority Vs. Shailendra (D) through LRS. & Ors.
[Civil Appeal No.20982 of 2017]
Yogesh Kumar & Ors. Vs. State of Madhya Pradesh & Ors.
[Special Leave Petition (C) No.10742 of 2008]
[Special Leave Petition (C) No.20920 of 2011]
[Special Leave Petition (C) Nos.26574-26575 of 2011]
[Special Leave Petition (C) No.28993 of 2011]
[Special Leave Petition (C) No.30198 of 2015]
[Special Leave Petition (C) No.30192 of 2015]
[Special Leave Petition (C) No.30142 of 2015]
[Special Leave Petition (C) No.30128 of 2015]
[Special Leave Petition (C) No.30203 of 2015]
[Civil Appeal No.4835 of 2015]
[Special Leave Petition (C) No.25289 of 2015]
[Special Leave Petition (C)..................Cc No.9842 of 2016]
[Special Leave Petition (C) No.22356 of 2015]
[Special Leave Petition (C) No.31678 of 2015]
[Civil Appeal No.4836 of 2015]
[Special Leave Petition (C) No.22527 of 2015]
[Special Leave Petition (C) No.4705 of 2016]
[Special Leave Petition (C) No.30577-30580 of 2015]
[Special Leave Petition (C) No.27389 of 2015]
[Special Leave Petition (C) No.27383 of 2015]
[Special Leave Petition (C) No.34787 of 2015]
[Special Leave Petition (C) No.10190-10200 of 2017]
[Special Leave Petition (C) No.38290 of 2016]
[Special Leave Petition (C) No.9571 of 2016]
[Special Leave Petition (C) No.15127 of 2016]
[Special Leave Petition (C) No.15144 of 2016]
[Special Leave Petition (C) No.15131 of 2016]
[Special Leave Petition (C) No.15139 of 2016]
[Special Leave Petition (C) No.16425 of 2016]
[Special Leave Petition (C) No.15117 of 2016]
[Special Leave Petition (C) No.15140 of 2016]
[Special Leave Petition (C) No.9570 of 2016]
[Special Leave Petition (C) No.15113 of 2016]
[Special Leave Petition (C) No.16438 of 2016]
[Special Leave Petition (C) No.15119 of 2016]
[Special Leave Petition (C) No.15126 of 2016]
[Special Leave Petition (C) No.15125 of 2016]
[Special Leave Petition (C) No.15118 of 2016]
[Special Leave Petition (C) No.15124 of 2016]
[Special Leave Petition (C) No.15112 of 2016]
[Special Leave Petition (C) No.11824 of 2016]
[Special Leave Petition (C) No.15143 of 2016]
[Special Leave Petition (C) No.15141 of 2016]
[Special Leave Petition (C) No.15142 of 2016]
[Special Leave Petition (C) No.15213-15217 of 2017]
[Special Leave Petition (C) No.17324 of 2016]
[Special Leave Petition (C) No.38368 of 2016]
[Special Leave Petition (C) No.5182-5184 of 2017]
[Special Leave Petition (C) No.23846 of 2016]
[Special Leave Petition (C) No.23097 of 2016]
[Special Leave Petition (C) No.19804-19805 of 2016]
[Special Leave Petition (C) No.22127-22128 of 2016]
[Special Leave Petition (C) No.21997-21998 of 2016]
[W.P.(C) No.602 of 2017]
[Special Leave Petition (C) .. Diary No.24901 of 2017]
J U D G M E N T
ARUN MISHRA, J.
1. In Indore Development Authority v. Shailendra (Dead) through LRs. & Others [C.A No.20982 of 2017] correctness of the decision of Pune Municipal Corporation & Anr. v. Harakchand Misirimal Solanki [2014 (3) SCC 183] has been doubted. The main issue is interpretation of section 24 of the Right to Fair Compensation and Transparency in Land Acquisition, Rehabilitation and Resettlement Act, 2013 (for short, 'the Act of 2013') and section 31 of the Land Acquisition Act, 1894 (for short, 'the Act of 1894').
2. In Yogesh Neema & Ors. v. State of M.P. & Ors. [S.L.P. [C] No.10742 of 2008] vide order of 12.1.2016, observing that other question, that may arise undoubtedly to be considered question Nos. IV and V have been referred.
Following questions arises for consideration:
I. What is the meaning of the expression 'paid'/ 'tender' in Section 24 of the Act of 2013 and section 31 of the Act of 1894? Whether non-deposit of compensation in court under section 31(2) of the Act of 1894 results into a lapse of acquisition under section 24(2) of the Act of 2013. What are the consequences of non-deposit in Court especially when compensation has been tendered and refused under section 31(1) of the Act of 1894 and section 24(2) of the Act of 2013? Whether such persons after refusal can take advantage of their wrong/conduct?
II. Mode of taking physical possession as contemplated under section 24(2) of the Act of 1894.
III. Whether section 24 of Act of 2013 revives barred and stale claims?
IV. Whether the conscious omission referred to in paragraph 11 of the judgment in Shree Balaji Nagar Residential Association v. State of Tamil Nadu [(2015) 3 SCC 353] makes any substantial 5 difference to the legal position with regard to the exclusion or inclusion of the period covered by an interim order of the Court for the purpose of determination of the applicability of Section 24(2) of the 2013 Act?
V. Whether the principle of "actus curiae neminem gravabit", namely act of the Court should not prejudice any parties would be applicable in the present case to exclude the period covered by an interim order for the purpose of determining the question with regard to taking of possession as contemplated in Section 24(2) of the 2013 Act?
In Re: Question No.1
3. Question that has been referred in as to meaning of the expression 'paid' used in section 24 of Act of 2013 and expression 'tender' used in section 31(1) of Act of 1894 when deposit under section 31(2) of Act of 1894 is necessary, effect of refusal to accept compensation and whether deposit in treasury is permissible and effect of non-deposit of compensation in Court.
4. In order to appreciate the various questions to be answered, it is appropriate to first consider the provisions contained in the Act of 1894 with respect to the passing of the award, together with its 6 communication and payment; the following then is a 'bird's eye view' of the same.
SCHEME of ACT & RELEVANT PROVISIONS:
5. After notification under section 4 and declaration under section 6 have been issued under the Act of 1894, the Collector is required to proceed to pass an award under section 11. Section 12 requires the Collector to give immediate notice of the award to such persons interested as are not present personally or by their representatives when the award is made. Section 16 deals with the power of the Collector to take possession of the land after an award has been made under section 11. It is open to the Collector to take possession of the land, which shall, thereupon, vest absolutely in the Government. Section 16 is extracted hereunder:
"16. Power to take possession - When the Collector has made an award under section 11, he may take possession of the land, which shall thereupon vest absolutely in the Government, free from all encumbrances.
(emphasis supplied)
6. Section 17 deals with special powers in cases of urgency. The same authorizes the Collector to take possession before passing of the award as provided in section 17(1) of the Act of 1894, and on taking possession of any land, such land shall thereupon vest 7 absolutely in the Government, free from all encumbrances. Section 17 is extracted hereunder:
"17. Special powers in case of urgency -
(1) In cases of urgency whenever the [appropriate Government], so directs, the Collector, though no such award has been made, may, on the expiration of fifteen days from the publication of the notice mentioned in section 9, subsection 1). [take possession of any land needed for a public purpose]. Such land shall thereupon [vest absolutely in the [Government], free from all encumbrances.
(2) Whenever owing to any sudden change in the channel of any navigable river or other unforeseen emergency, it becomes necessary for any Railway Administration to acquire the immediate possession of any land for the maintenance of their traffic or for the purpose of making thereon a river-side or ghat station, or of providing convenient connection with or accesses to any such station, [or the appropriate Government considers it necessary to acquire the immediate possession of any land for the purpose of maintaining any structure or system pertaining to irrigation, water supply, drainage, road communication or electricity,] the Collector may immediately after the publication of the notice mentioned in sub-section (1) and with the previous sanction of the [appropriate Government], enter upon and take possession of such land, which shall thereupon [vest absolutely in the [Government]] free from all encumbrances :
Provided that the Collector shall not take possession of any building or part of a building under this sub-section without giving to the occupier thereof at least forty-eight hours notice of his intention so to do, or such longer notice as may be reasonably sufficient to enable such occupier to remove his movable property from such building without unnecessary inconvenience.
(3) In every case under either of the preceding sub-sections the Collector shall at that time of taking possession offer to the persons interested compensation for the standing crops and trees (if any) on such land and from any other damage sustained by them caused by such sudden dispossession and not excepted in section 24; and, in case such offer is not accepted, the value of such crops and trees and the amount of such other damage shall be allowed for in awarding compensation for the land under the provisions herein contained.
[(3A) Before taking possession of any land under sub-section (1) or sub-section (2), the Collector shall, without prejudice to the provisions of sub-section (3)-
(a) tender payment of eighty per centum of the compensation for such land as estimated by him to the person interested entitled thereto, and
(b) pay it to them, unless prevented by some one or more of the contingencies mentioned in section 31, sub-section (2), and where the Collector is so prevented, the provisions of section 31, sub-section (2), (except the second proviso thereto), shall apply as they apply to the payment of compensation under that section.
(3B) The amount paid or deposited under section (3A), shall be taken into account for determining the amount of compensation required to be tendered under section 31, and where the amount so paid or deposited exceeds the compensation awarded by the Collector under section 11, the excess may, unless refunded within three months from the date of Collector's award, be recovered as an arrear of land revenue].
[(4) In the case of any land to which, in the opinion of the [appropriate Government], the provisions of sub-section (1) or sub-section (2) are applicable, the [appropriate Government] may direct that the provisions of section 5A shall not apply, and, if it does so direct, a declaration may be made under section 6 in respect of the land at any time [after the date of the publication of the notification] under section 4, sub-section (1)."
(emphasis supplied)
Before taking possession of the land, it is necessary under Section 17(3A) to tender payment of 80% compensation unless prevented by some one or more of the contingencies mentioned in sub-section (2) of section 31, and where the Collector is so prevented, the provisions of section 31(2), except the second proviso, shall apply as they apply to the payment of compensation under that section. As required under section 17(3A) and section 17(3B), the amount paid or deposited under sub-section (3A) shall be taken into account for determining the amount of compensation to be tendered under section
31. Section 18 of the Act of 1894 provides that any person interested, who has not accepted the award, may ask for a reference to be made to the court with respect to
(1) measurement of the land;
(2) the amount of compensation
(3) the persons to whom it is payable or
(4) the apportionment of the compensation among the persons interested.
Under section 30, there can be a reference to the court; its scope is confined to any dispute arising as to the apportionment of the amount of compensation or any part thereof, or as to the persons to whom the same or any part thereof is payable. In a reference under section 30, measurement of land and quantum of compensation cannot be questioned. There is a limitation for reference under section 18(2); whereas, the limitation is not prescribed in the Act of 1894 for seeking reference under section 30.
7. There is yet another reference under the Act of 1894, i.e. under section 28A. The provisions of section 28A aim at removal of the disparity in the matter of payment of compensation which provides 10 for re-determination of the amount of compensation, on the basis of the award of the court, in respect of a person who had not sought reference, and had accepted the Collector's award; such a person can seek re-determination of compensation within three months from the date of the award of the court. In case a person is not satisfied with the re-determination so made under section 28A(2), he can seek a reference to court under section 28A(3).
8. The payment of compensation and deposit of it in Court is dealt with in Part V of the Act of 1894, in section 31. Section 31 is extracted hereunder:
"31. Payment of compensation or deposit of same in Court. -
(1) On making an award under section 11, the Collector shall tender payment of the compensation awarded by him to the persons interested entitled thereto according to the award and shall pay it to them unless prevented by some one or more of the contingencies mentioned in the next sub-section.
(2) If they shall not consent to receive it, or if there be no person competent to alienate the land, or if there be any dispute as to the title to receive the compensation or as to the apportionment of it, the Collector shall deposit the amount of the compensation in the Court to which a reference under section 18 would be submitted:
Provided that any person admitted to be interested may receive such payment under protest as to the sufficiency of the amount: Provided also that no person who has received the amount otherwise than under protest shall be entitled to make any application under section 18:
Provided also that nothing herein contained shall affect the liability of any person, who may receive the whole or any part of any compensation awarded under this Act, to pay the same to the person lawfully entitled thereto.
(3) Notwithstanding anything in this section the Collector may, with the sanction of the [appropriate Government] instead of awarding a money compensation in respect of any land, make any arrangement with a person having a limited interest in such land, either by the grant of other lands in exchange, the remission of land-revenue on other lands held under the same title, or in such other way as may be equitable having regard to the interests of the parties concerned.
(4) Nothing in the last foregoing sub-section shall be construed to interfere with or limit the power of the Collector to enter into any arrangement with any person interested in the land and competent to contract in respect thereof."
9. The provision of section 31(2) makes it clear that only in the exigencies as provided in section 31(2), the amount has to be deposited in reference court, not in all exigencies. As discussed hereinafter rules framed under section 55 provide that in case a person seeks no reference and he refuses to accept the compensation it has to be deposited in the treasury. An attempt has to be made to harmonize the Act and the rules. The expression used in section 31(2) is that on refusal amount to be deposited in Court where reference would be submitted. When no reference is sought there is no question of it being submitted to the Court. Hence, Reference Court does not come into picture then the deposit is to be obviously made in treasury as provided in Rules/ Order discussed hereinafter.
10. Sub-section (1) of section 31 deals with "payment", whereas, sub-section (2) of section 31 deals with "deposit" of the amount of compensation in court in certain contingencies. "Payment" of compensation is differently dealt with in section 31(1), and "deposit" is separately dealt with in section 31(2) of the Act of 1894. Section 31(1) provides tender of the amount to be the mode to pay. The provisions of sub-section (1) deal with payment, and sub-section (2) of section 31 deals with deposit in the Court "where reference would be submitted", only in the contingencies mentioned, i.e.
(1) if the person interested shall not consent to receive it, and has sought reference to Court or
(2) if there be no person competent to alienate the land, or
(3) if there be any dispute as to the entitlement to receive the compensation, or
(4) if there be any dispute as to the apportionment of compensation between the interested persons. The Collector is required to deposit the amount of the compensation in the Court to which a reference under section 18 would be submitted. It is also provided in section 31(2) that no person who has received the amount otherwise than under protest shall be entitled to make an application for seeking reference under section 18. It is open to a person, under the first proviso to section 31(2), to receive payment of compensation under protest as to the sufficiency of the amount, and such person is also entitled to maintain a reference.
The third proviso to section 31(2) makes it clear that any person who has received the whole or any part of compensation awarded under the Act, shall still be liable to pay the same to a person who is lawfully entitled thereto. It is with the purpose as provided in section 31 when the amount is tendered it can be accepted under protest and still a reference can be maintained. In case awarded amount has been accepted without protest, reference cannot be maintained under section 18.
11. In case of incompetency of a person to alienate the land in question, amount has to be deposited in the reference court under section 31(2), and when money of such person is deposited in Court, court may order the money to be invested in the purchase of another land to be held under the like title and conditions of ownership, as the land, in respect of which, such money shall have been deposited, was held, or if such purchase cannot be effected forthwith, money can be invested in Government or other approved securities as the court shall think fit and has to be dealt with in accordance with the provisions contained in section 32.
Section 33 deals with an investment of money deposited in other cases.
12. In case money is deposited in court otherwise than as provided under section 32, any party interested can apply to the court for investing the same in Government or other approved securities, is the purpose of deposit. The provisions of sections 32 and 33 of the Act of 1894 are extracted hereunder:
"32. Investment of money deposited in respect of lands belonging to persons incompetent to alienate. - (1) If any money shall be deposited in Court under sub-section (2) of the last preceding section and it appears that the land in respect whereof the same was awarded belonged to any person who had no power to alienate the same, the Court shall-
(a) order the money to be invested in the purchase of other lands to be held under the like title and conditions of ownership as the land in respect of which such money shall have been deposited was held, or
(b) if such purchase cannot be effected forthwith, then in such Government of other approved securities as the Court shall think fit; and shall direct the payment of the interest or other proceeds arising from such investment to the person or persons who would, for the time being, have been entitled to the possession of the said land, and such moneys shall remain so deposited and invested until the same be applied-
(i)in the purchase of such other lands as aforesaid; or
(ii) in payment to any person or persons becoming absolutely entitled thereto.
(2) In all cases of money deposited to which this section applies the Court shall order the costs of the following matters, including therein all reasonable charge and expenses incident thereon, to be paid by the Collector, namely: -
(a) the costs of such investments as aforesaid;
(b) the costs of the orders for the payment of the interest or other proceeds of the securities upon which such moneys are for the time being invested, and for the payment out of Court of the principal of such moneys, and of all proceedings relating thereto, except such as may be occasioned by litigation between adverse claimants.
33. Investment of money deposited in other cases - When any money shall have been deposited in Court under this Act for any cause other than mentioned in the last proceeding section, the court may, on the application of any party interested or claiming an interest in such money, order the same to be invested in such Government or other approved securities as it may think proper, and paid in such manner as it may consider will give the parties interested therein the same benefit the reform as they might have had from the land in respect whereof such money shall have been deposited or as near thereto as may be."
13. The provisions contained in section 34 deals with the exigencies where the amount of compensation is not paid or deposited on or before taking possession of the land. The Collector shall pay the amount awarded with interest thereon @ 9% from the time of so taking possession until it shall have been so paid or deposited; and if such compensation or any part thereof is not paid or deposited within one year from the date on which possession is taken, interest @ 15% per annum shall follow.
Section 34 of 1894 Act is extracted hereunder:
"34. Payment of interest - When the amount of such compensation is not paid or deposited on or before taking possession of the land, the Collector shall pay the amount awarded with interest thereon at the rate of (nine per centum) per annum from the time of so taking possession until it shall have been so paid or deposited: [Provided that if such compensation or any part thereof is not paid or deposited within a period of one year from the date on which possession is taken, interest at the rate of fifteen per centum per annum shall be payable from the date or expiry of the said period of one year on the amount of compensation or part thereof which has not been paid or deposited before the date of such expiry."
14. The expression "paid"/"tender" and the expression "deposited" have both been used separately in section 31, as well as in section 34, of the Act of 1894; so also in Section 24(2) of the Act of 2013. They carry different meanings, and different consequences flow from them. Significantly, it is clear under Section 16 of the Act of 1894, that once award has been passed and possession has been taken, land absolutely vests in the State, and in the case of contingencies as provided in section 17(1) when possession is taken in the case of urgency, even before passing of the award, land vests absolutely in the State under section 17(3A), 80% amount is required to be tendered before taking possession under sections 17(1) and 17(2); and, the same is to be paid in the mode as provided for under section 31(1) and, in case of refusal, incompetency etc. to alienate and other such cases as provided under section 31(2), it has to be deposited in the court and in case it is not so deposited, consequences, as prescribed under section 34, shall follow i.e. from the date of taking possession 9% interest for the first year and after 1 year, 15% interest has to be paid on the amount not so paid or deposited.
Under the provisions of the Act of 1894, there is no divesting of the land which has vested absolutely in the State; and, the consequences of non-payment, or of non-tendering of compensation, or of non-depositing of the same in court, would only be that of the additional liability of interest as provided in section 34. The provision with respect to the payment of 15% interest has been inserted via the proviso to section 34, w.e.f. 24.9.1984, vide Amendment Act No.68/1984.
15. When we consider the provisions of the Act of 2013, vis-Ã -vis those of the Act of 1894, it becomes apparent that Section 11 of the Act of 2013 is akin to section 4 of the Act of 1894. Section 19 deals with publication of declaration and summary of Rehabilitation and Settlement, it is equivalent to section 6 of the Act of 1894. Section 23 deals with matters to be considered while determining compensation by the Collector.
16. Section 24 of the Act of 2013 deals with land acquisition process initiated under the Act of 1894, which shall be deemed to have lapsed in certain cases. With respect to acquisition, when award, under the Act of 1894, has not been passed, then, as per Section 24(1)(a) of the Act of 2013, all the provisions of the Act of 2013 relating to the determination of compensation shall apply; where, however, an award under section 11 of the act of 1894 has been made, then such proceedings shall continue,as per section 24(1)(b), under the Act of 1894, as if the said Act has not been repealed.
17. Section 24(2) begins with a non-obstante clause - as notwithstanding anything contained in sub-section (1). The provisions of sub-section (2) of section 24 shall, under the exigencies provided therein, have the overriding effect, i.e. in case of award, under Act of 1894, has been made five years or more prior to the commencement of the Act of 2013, but either the physical possession has not been taken, or compensation has not been paid, the said proceedings shall be deemed to have lapsed.
The proviso to section 24(2) lays down when the award has been made and compensation in respect of majority of holdings has not been deposited in the account of the beneficiaries, the acquisition would not lapse; however, all the beneficiaries shall be entitled to compensation in accordance with the provisions of the Act of 2013. 18. When we consider the scheme of the Act of 2013 also with respect to the mode of payment of compensation, we find provisions of section 77 are almost akin to those of section 31. The provisions of section 77 of the Act of 2013 are extracted hereunder:
"77. Payment of compensation or deposit of same in Authority. -
(1) On making an award under section 30, the Collector shall tender payment of the compensation awarded by him to the persons interested entitled thereto according to the award and shall pay it to them by depositing the amount in their bank accounts unless prevented by someone or more of the contingencies mentioned in sub-section (2).
(2) If the person entitled to compensation shall not consent to receive it, or if there be no person competent to alienate the land, or if there be any dispute as to the title to receive the compensation or as to the apportionment of it, the Collector shall deposit the amount of the compensation in the Authority to which a reference under section 64 would be submitted: Provided that any person admitted to be interested may receive such payment under protest as to the sufficiency of the amount:
Provided further that no person who has received the amount otherwise than under protest shall be entitled to make any application under sub-section (1) of section 64: Provided also that nothing herein contained shall affect the liability of any person, who may receive the whole or any part of any compensation awarded under this Act, to pay the same to the person lawfully entitled thereto."
19. Section 80 of the Act of 2013, is equivalent to section 34 of the Act of 1894, the same is extracted hereunder:
"80. Payment of interest. -When the amount of such compensation is not paid or deposited on or before taking possession of the land, the Collector shall pay the amount awarded with interest thereon at the rate of nine percent. per annum from the time of so taking possession until it shall have been so paid or deposited: Provided that if such compensation or any part thereof is not paid or deposited within a period of one year from the date on which possession is taken, interest at the rate of fifteen percent. per annum shall be payable from the date or expiry of the said period of one year on the amount of compensation or part thereof which has not been paid or deposited before the date of such expiry."
20. It is apparent, from the provisions contained in section 77 of the Act of 2013, that, the expression used in section 77 that the Collector shall "tender" payment of the compensation to landowners/interested persons, and the obligation is to pay it to them by depositing the amount in their bank accounts unless prevented by exigencies provided in section 77(2), are akin to section 31(2) of the Act of 1894.
21. In proviso to section 24(2), expression used is compensation has not been "deposited" in the account of the beneficiaries, which may be deposited separately in treasury also; whereas, in section 77, of the Act of 2013 the deposit is required, in the "bank" account of beneficiaries, unless refused. The expression "bank-account" has 21 not been used in section 31 of the Act of 1894 or in section 24(2) of Act of 2013. In proviso to section 24(2), the expression used "deposited in account" would mean deposited only in Treasury or with the Land Acquisition collector for payment.
22. It is pertinent to mention that section 80 of the Act of 2013 also imposes a liability of interest, akin to Section 34 of the Act of 1894, upon amount not being deposited; i.e. 9% for the first year and, thereafter, 15% per annum. The Act of 2013 does not envisage the consequence of lapse of the acquisition on non-deposit of compensation in court, and neither was it so provided for in section 31 of the Act of 1894. The provision of section 24 thus does not contemplate deposit of amount in Court. In our opinion, the expression "paid" and "deposited" are separately used in both enactments, and they both carry a different meaning. The aforesaid provisions deal with tender and deposit; and, consequences are similar.
INTERPRETATION of SECTION
23. Section 24 of the Act of 2013 is extracted hereunder:-
"24. Land acquisition process under Act No. 1 of 1894 shall be deemed to have lapsed in certain cases.-
(1) Notwithstanding anything contained in this Act, in any case of 22 land acquisition proceedings initiated under the Land Acquisition Act, 1894,-
(a) where no award under section 11 of the said Land Acquisition Act has been made, then, all provisions of this Act relating to the determination of compensation shall apply; or
(b) where an award under said section 11 has been made, then such proceedings shall continue under the provisions of the said Land Acquisition Act, as if the said Act has not been repealed.
(2) Notwithstanding anything contained in sub-section (1), in case of land acquisition proceedings initiated under the Land Acquisition Act, 1894 (1 of 1894), where an award under the said section 11 has been made five years or more prior to the commencement of this Act but the physical possession of the land has not been taken or the compensation has not been paid the said proceedings shall be deemed to have lapsed and the appropriate Government, if it so chooses, shall initiate the proceedings of such land acquisition afresh in accordance with the provisions of this Act:
Provided that where an award has been made and compensation in respect of a majority of land holdings has not been deposited in the account of the beneficiaries, then, all beneficiaries specified in the notification for acquisition under section 4 of the said Land Acquisition Act, shall be entitled to compensation in accordance with the provisions of this Act."
24. When we consider the provisions of section 24 of the 2013 Act, it is clear that in case of the award has not been passed then as per section 24(1)(a), compensation has to be determined under the Act of 2013. It is also clear that section 24(1)(b) provides that where an award under section 11 of the 1894 Act has been made, then such proceedings shall continue under the provisions of the said Act of 1894 as if it has not been repealed. However, in case physical possession of the land has not been taken, or the compensation has not been paid, the proceedings shall be deemed to have lapsed; and, in case of compensation with respect to a majority of landholdings has not been deposited in the account of the beneficiaries, then, all beneficiaries i.e. landowners shall be entitled to compensation in accordance with the provisions of the Act of 2013.
25. In section 24(2), the expression that has been employed is "compensation has not been paid". The expression "deposited", which occurs in the proviso to sub-section (2), has not been used in the main section 24(2). Its proviso uses the expression "deposited in the account of the beneficiaries", meaning thereby, in the case with respect to the majority of land holdings amount has not been deposited in the account of beneficiaries, though the acquisition would not lapse, all beneficiaries would get benefit of the compensation under the Act of 2013. Thus, the consequence of non-deposit of the amount, with respect to the majority of land holdings, in the account of the beneficiaries, is that the acquisition would not lapse, and only compensation under the new Act would be payable.
Whereas, under the main part of section 24(2), it is apparent that, the expression "compensation has not been paid" has been used. The word "deposited" is missing from main part of section 24(2), and it is only used in the proviso. Thus it is crystal clear that the Legislature has used two different expressions to carry, respectively different meanings; and, the proviso operates in a different field, where the acquisition would not lapse. The object is that a body or State Government, for whose benefit land has been acquired, must have possessed the requisite funds for payment to the landowners. The proviso is not attracted where compensation has been paid.
26. The proviso to section 24(2) does not provide that amount of compensation has to be deposited in the court. It obviously refers to a payment deposited with LAO or in treasury.
27. The different expression "paid", used in section 24(2) of the 2013 Act, thus, cannot carry same meaning and include in it the deposit to be made in Court under section 31(2) of the Act of 1894; it only reflects the mode of payment as envisaged under section 31(1) of the Act of 1894 i.e. "tender".
28. The expression used in section 31 of Act of 1894 and Section 77(1) of Act of 2013 is to "tender payment". Once there is tender, then in case of refusal to accept the same,the obligation to pay under section 31(1) is complete by tender, and that tantamount to making the payment; and, that is precisely what is intended by the word "paid" in section 24(2) of 2013 Act.
29. In Section 31(2) of the 1894 Act, the word 'deposited in Court' is used. The deposit in Court is not payment to the beneficiaries. It is only after their refusal to accept the compensation tendered under section 31(1) of the Act of 1894 it is to be deposited in Court. It is further provided in the rules that in case of reference is sought, the amount is to be deposited in court where reference would be submitted otherwise it is to be deposited in the treasury.
If the expression "deposited", used in the proviso to section 24(2), and expression "paid" used in main section 24(2), are both taken as contained in expression "paid" i.e. the tender; and, on refusal it is deposited in court to make the "payment" complete; if expression "deposited" is included in expression 'payment' under Section 24(2), inconsistency and repugnancy would be caused as between the proviso and the main sub-section; which has to be eschewed. The Court cannot add the word "deposited" to the expression "paid"/ "tender" in Section 31 of Act 1894 or Section 24(2) of Act of 2013.
30. The proviso to section 24(2) of the 2013 Act deals with 'deposit' of compensation in treasury or with Land Acquisition Collector with respect to the majority of holding it does obviously contemplate that amount has not been 'paid' to landowners/ beneficiaries/ interested persons. Thus, when Scheme of entire section 24 is considered, the concept of 'paid' in the main section 24(2) is different than the deposit. If the deposit is included in word paid the proviso to section 24(2), which has the different consequence of no lapse, but only higher compensation would be otiose and become redundant and repugnancy would occur.
31. It is clear that expression 'paid' in section 24 is different than 'deposit' which is provided in its proviso. The word 'deposit' is included in section 24 in word 'paid'. Same is the position even under section 31(1) and 31(2). The provisions of section 24 cannot be rendered wholly unworkable by the inclusion of 'deposit' in 'paid'.
MEANING of "PAID" IN SECTION 31 of THE ACT of 1894 AND SECTION 24(2) of THE ACT of 2013 :
32. The question arises what is the meaning of the expression 'paid' in section 24 and 'tender' in section 31(2) of the Act of 1894. Whether the tender of compensation amount to discharge of obligations to make payment.
The meaning of expression "tender": is when a person has tendered the amount and made it unconditionally available and the landowner has refused to receive it, the person who has tendered the amount cannot be saddled with the liability, which is to be visited for non-payment of the amount. "Tender" has been defined in Black's Law Dictionary thus:
"tender, n. (16c) 1. A valid and sufficient offer of performance; specific, an unconditional offer of money or performance to satisfy a debt or obligation a tender of delivery. The tender may save the tendering party from a penalty for non-payment or non-performance or may, if the other party unjustifiably refuses the tender, place the other party in default.
Cf. OFFER OR PERFORMANCE; CONSIGNATION."
It is apparent from aforesaid that "tender" may save the tendering party from the penalty for non-payment or non-performance or penalty if another party unjustifiably refusing the tender, places the other party in default. A formal offer duly made by one party to another especially an offer of money in discharge of liability fulfills the terms of the law and of the liability. Tender is to offer of money in satisfaction of a debt, by producing 28 and showing the amount to a creditor or party claiming and expressing verbally, willingness to pay it. The expression "tender" has been used in section 31.The concept of deposited in court is different from tender and "paid".
33. This Court in the Straw Board Manufacturing Co. Ltd., Saharanpur v. Gobind, AIR 1962 SC 1500 has held in the context of section 33 of the Industrial Disputes Act where payment of one month's wages was necessary. It was held that the payment of one-month wages can always mean that the employer has tendered his wages and that would amount to payment for otherwise a workman could always make the section unworkable by refusing to take wages.
The Court observed thus:
"8. Let us now turn to the words of the proviso in the background of what we have said above. The proviso lays down that no workman shall be discharged or dismissed unless he has been paid wages for one month and an application has been made by the employer to the authority before which the proceeding is pending for approval of the action taken by the employer. It will be clear that two kinds of punishment are subject to the conditions of the proviso, namely, discharge or dismissal. Any other kind of punishment is not within the proviso. Further, the proviso lays down two conditions, namely
(i) payment of wages for one month and
(ii) making of an application by the employer to the authority before which the proceeding is pending for approval of the action taken.
It is not disputed before us that when the proviso lays down the condition as to payment of one month's wages, all that the employer is required to do in order to carry out that condition is to tender the wages to the employee. But if the employee chooses not to accept the wages, he cannot come forward and say that there has been no payment of wages to him by the employer. Therefore, though s. speaks of payment of one month's wages it can only mean that the employer has tendered the wages and that would amount, for payment, for otherwise, a workman could always make the section unworkable by refusing to take the wages. So far as the second condition about the making of the application is concerned."
(emphasis supplied)
34. In The Management of Delhi Transport Undertaking v. The Industrial Tribunal, Delhi &Anr. AIR 1965 SC 1503, a 3-Judge Bench of this Court considered the question of payment of wages under the proviso to section 33(3) of Industrial Disputes Act and has taken a similar view and observed:
"The proviso does not mean that the wages for one month should have been actually paid because in many cases the employer can only tender the amount before the dismissal but cannot force the employee to receive the payment before dismissal becomes effective. In this case, the tender was definitely made before the order of dismissal became effective and the wages would certainly have been paid if Hari Chand had asked for them. There was no failure to comply with the provision in this respect."
35. This Court in Indian Oxygen Ltd. v. Narayan Bhoumik (1968) 1 PLJR 94 has discussed the concept of 'paid' and has observed:
"4. The proviso to Section 33(2)(b) lays down that no workman shall be discharged or dismissed unless he has been paid wages for one month and an application has been made by the employer to the authority before which the proceeding is pending for approval of the action taken by him. Though the word used in the proviso is 'paid', the proviso does not mean that the employer must actually hand over or pay to the workman dismissed or discharged his one month's wages.
In (1962) 3 Suppl. S.C.R. 618] Strawboard Manufacturing Co. v. Gobind this Court while construing this proviso, observed that when it lays down the condition as to payment of one month's wages all that the employer is required to do to carry out that condition is to tender the wages to the employee.
But if the employee chooses not to accept them, he cannot come forward and say that there has been no payment of wages to him by the employer, Therefore, though Section 33 speaks of payment of one month's wages, it can only mean that the employer has tendered the wages and that would amount to payment, for otherwise, a workman could always make the section unworkable by refusing to take the wages. In (1964) 2 SCR 104, 109 P.H. Kalyani v. M/s. Air France, the employer had offered one month's wages to the workman before the order of dismissal against him came into force.
The offer was held to be sufficient compliance of the said condition laid down in the proviso, [(1955) 1 SCR 998] Management of Delhi Transport Undertaking v. Industrial Tribunal, Delhi was a case where the wages were remitted by money order but the workman purposely refused to receive them. It was held that the employer could not be said not to have complied with the condition laid down by the proviso. It is thus clear that the condition as to payment in the proviso does not mean that the wages have to be actually paid but if wages are tendered or offered, such a tender or offer would be sufficient compliance for the purposes of Section 33(2)(b) proviso."
36. The word "paid" means applied, settled or satisfied. The concept of paid has also been considered by this Court in The Benares State Bank Ltd. v. The Commissioner of Income Tax, Lucknow, (1969) 2 SCC 316, in the context of section 14(2)(c) of Income Tax Act, 1922. This Court observed that the expression "paid" in section 16(2) does not contemplate actual receipt of the dividend by the members of the community; in general, the dividend 31 may be said to be paid when company discharges its liability and makes the amount of dividend unconditionally available to the member entitled thereto.
The Court has observed:
"5. .....This Court observed in J. Dalmia v. Commissioner of Income-tax, Delhi 53 ITR 83 that the expression "paid" in Section 16(2) does not contemplate actual receipt of the dividend by the member : in general, dividend may be said to be paid within the meaning of Section 16(2) when the Company discharges its liability and makes the amount of dividend unconditionally available to the member entitled thereto......."
(emphasis supplied)
37. In N.B. Sanjana, Assistant Collector of Central Excise, Bombay & Ors. v. The Elphinstone Spinning & Weaving Mills Co. Ltd. (1971) 1 SCC 337, the court observed that literal meaning of the word "paid" need not be adopted.
38. In J.Dalmia v. Commissioner of Income Tax, New Delhi, AIR 1964 SC 1866 at 1869, this Court has observed that the expression "paid" does not contemplate actual receipt of the dividend by the member. The dividend may be said to be paid within the meaning of section 16(2) when the company discharges its liability and makes amount unconditionally available the members entitled thereto. "The expression "paid" in s. 16(2) it is true does not contemplate actual receipt of the dividend by the member. In general, dividend may be said to be paid within the meaning of s. 16(2) when the company discharges its liability and makes 32 the amount of dividend unconditionally available to the member entitled thereto.
(emphasis supplied)
39. The expression "paid" would mean in section 31(1) of Act 1894 and section 24(2) of Act of 2013 as soon as it is offered and made unconditionally available. Merely, if a landowner refuses to accept it, it cannot be said that it has not been paid. Once amount has been tendered that would amount to payment. Thus, word "paid" does not mean actual payment to be made but whatever is possible for an incumbent to make the payment is only contemplated. "Paid" does not mean receipt or deposited in Court. There may be refusal to receive an amount in spite of its tender.
Thus, in view of the decisions of this court in CIT Kerala (supra), N.B. Sanjana (supra) and J. Dalmia (supra), the provisions of section 24(2) have to be construed to mean tender of amount would mean payment as envisaged.
40. It is settled that a Court cannot add or subtract a word; the expression "compensation has not been paid" is used in section 24(2); it is not open to the court to add to these words, or to substitute the said expression with any further expression, such as 'deposit'. In the "Principles of Statutory Interpretation" by G.P. Singh (14th edition), it has been observed that court has to avoid addition or substitution of the words.
Thus, when the word "paid" is there, it is not open to adding "deposited", particularly when the scheme of the Act of 1894 also contains different provisions in section 31(1) with respect to tender is payment, while section 31(2)deals with deposit in the court; on non-deposit consequence in section 34, later is not a payment made to the landowner. The deposit is only in certain exigencies with a view to wiping off the liability of making payment of interest as provided in section 34.
41(a). While interpreting a statutory provision, no addition to, or subtraction from, the Act is permissible. It is not open to Court to either add or subtract, a word. The legal maxim "A Verbis Legis Non Est Recedendum" means: from the words of law, there must be no departure. The learned author in Interpretation of Statutes has referred to the Privy Council decision in Crawford v. Spooner, (1846) 6 Moore PC 1 and Lord Howard de Walden v. IRC, (1948) 2 AER 825 and other decisions of the Court and observed:
".......(a) Avoiding addition or substitution of words As stated by the Privy Council: "We cannot aid the Legislature's defective phrasing of an Act, we cannot add or mend and, by construction makeup deficiencies which are left there". "It is contrary to all rules of construction to read words into an Act unless it is absolutely necessary to do so." Similarly, it is wrong and dangerous to proceed by substituting some other words for words of the statute. Speaking briefly the court cannot reframe the legislation for the very good reason that it has no power to legislate.
x xxxx
While interpreting section 621-A(1) of the Companies Act, 1956, the Supreme Court held that the Court must avoid rejection or addition of words and resort to that only in exceptional circumstances to achieve the purpose of the Act or to give a purposeful meaning to the section. Section 621-A provides for compounding, by the Company Law Board, of any offence punishable under the Act, not being an offence punishable with imprisonment only, or with imprisonment and also with fine, either before or after the institution of any prosecution. It was held that the Company Law Board has the power to compound such offences without the permission of the Court. Since the Legislature, in its wisdom, has not put the rider of prior permission in the section, addition of the words 'with the prior permission of the court' to the provision is not permissible .
Section 2(2) of the Arbitration and Conciliation Act, 1996, which is in Part I of the Act, provides that 'This Part shall apply where the place of arbitration is in India. In Bharat Aluminium Company v. Kaiser Aluminium Technical Services Inc., a Constitution Bench of the Supreme Court rejected the contention that Part I of the Act was also applicable to arbitrations seated in foreign countries on the ground that in such a case certain words would have to be added to section 2(2), which would then have to provide that 'this part shall apply where the place of arbitration is in India and to arbitrations having its place out of India'.
This would amount to a drastic and unwarranted rewriting or alteration of the language of section 2(2), and it is not permissible for the Court to reconstruct a statutory provision. In this case, the Constitution Bench prospectively overruled the decision of a three-Judge Bench of the Supreme Court in Bhatia International v. Bulk Trading SA, which had held that provisions of Part I would apply to international commercial arbitrations held outside India unless the parties, by agreement, express or implied, exclude all or any of its provisions.
x xxxx
And, in construing section 14(f) of the U.P. Town Areas Act, 1914, which reads 'A tax on persons assessed according to their circumstances and property not exceeding such rate and subject to such limitations and restrictions as may be prescribed', the Supreme Court refused to read residence within the town area as a necessary part of the condition for imposition of the said tax. S.K. DAS, J. said, "To do so will be to read in clause (f) words which do not occur there".
Further, in interpreting section 6(a) and section 43 of the Transfer of Property Act, 1882, the Supreme Court refused to read a further exception in section 43 excluding its operation in cases of transfer of spessuccessionis. VENKATARAMA AIYER, J. quoted with approval the observations of LORD LOREBURN, L.C., "We are not entitled to read words into an Act of Parliament unless clear reason for it is to be found within the four corners of the Act itself".
x xxxx
on the same principle the House of Lords refused to read the word 'satisfied' in section 4 of the Matrimonial Causes Act, 1950 to mean 'satisfied beyond reasonable doubt'. X xxxx Sections 12(5) and 15(5) of the Right to Information Act, 2005, while providing that the Chief Information Commissioner and Information Commissioners shall be persons of eminence in public life, with wide knowledge and experience in law, science, and technology, social science, management, journalism, mass media or administration and governance, do not further prescribe any basic qualification which such persons must have in the respective fields in which they work. As a result, the Court cannot read into the provisions of sections 12(5) and 15(5) of the Act the words that such persons must have a basic degree in their respective fields.'"
(emphasis supplied)
(b). This Court in Nali Nalinakhya Bysack v. Shyamsunder 36 Halder, AIR 1953 SC 148 at 152, State of Madhya Pradesh v. G.S. Dall and Flour Mills, AIR 1991 SC 772, State of Gujarat and Others v. Dilipbhai Nathjibhai Patel and Another (1998) 3 SCC 234, Competition Commission of India v. Steel Authority of India Ltd. (2010) 10 SCC 744, Assessing Authority cum-Excise and Taxation Officer v. East India Cotton Mfg. Co. Ltd. (1981) 3 SCC 531, Paul Enterprises & Ors. v. Rajib Chatterjee & Co. & Ors., AIR 2009 SC 187, Sakshi v. Union of India (2004) 5 SCC 518, Commissioner of Income Tax, Kerala v. Tata Agencies (2007) 6 SCC 429, Ram Narain Medhi v. State of Bombay AIR 1959 SC 459, S.P. Gupta v. President of India AIR 1982 SC 149, Dadi Jagannadham v. Jammulu Ramulu (2001) 7 SCC 71, P.K. Unni v. Nirmala Industries AIR 1990 SC 933, Crawford v. Spooner (1846) 6 Moore PC 1, Royal Trust Company v. Minister of Finance AIR 1921 PC 184, Padma Sundara Rao (dead) & Ors. v. State of T. N. & Ors. (2002) 3 SCC 533 has observed that what legislation wanted has been stated in the provision.
The court cannot give extended meaning to the expression. It is not open to the Court to aid defective phrasing of the Act or to make up for the deficiencies. It is not open to the Court to recast, rewrite, or reframe the provision. The court cannot assume omission and add or amend words. Plain and unambiguous construction has to be given without addition and substitution of the words. The temptation of substituting words by explaining what it thought legislation is endeavoring is to be discouraged. Court has to consider what has been said and what has not been said. It is wrong and dangerous to proceed by substituting some other words for the words of the statute.
When literal reading produces an intelligible result it is not open to read words or add words to statute. Making any generous addition to the language of the Act would not be a construction of the statutory provision; rather, would be an amendment thereof. While interpreting the provision the Court only interprets the law. The intention of the legislation must be found by the words used by the legislature itself. The legislative casus omissus cannot be supplied by judicial interpretative process. When language of the provision is clear, there is no scope for reading something into it. The scenario that thus emerges in relation to an interpretation of a statute can be explained as follows.
It is a salutary principle that it is not open to the Court to add or substitute some words in place of the words of the statute. The court cannot reframe the legislation. The court 38 cannot add to, or amend, the provisions; neither can the expressions used in the statute be treated as fungible. We need not add any word when Section 24(2) uses the expression "compensation has not been paid".
To complete the payment, we cannot read words into it to the effectthat deposit of payment in the court is payment to the landowners. It is clear that unless it is absolutely necessary to do so, it is not open to read the word "deposited" in court as part of 'paid' when payment is contemplated to the landowners. The consequence of nondeposit is culled out in proviso to section 24(2). It is not that section 31(2) would become meaningless. Hence, deposit cannot and need not be added to expressions paid/ tender. In case the legislature wanted the 'deposit in Court' to be included in 'paid/ tender', it could have easily said so. But it has used expressions differently, with different consequences.
42. What follows from the aforesaid enunciation is that the legislature has consciously omitted the expression "deposited" in main section 24(2), whereas, it is used in the proviso; both have different objectives. When the legislature has used different 39 expressions with respect to past events - the word "paid" is used in a discernibly distinctive sense than the sense conveyed by the word "deposited" occurring in the proviso - both are required to be given different meanings. There is casus omissus, i.e. conscious omission made by the Legislature in main Section 24(2) when the expression "deposited" has not been used in the expression "has been paid", and it is only after amount tendered is declined, it is to be deposited in Court that too in certain exigencies as per section 31(2).
43. The word "paid", in view of the different consequences of paid and deposited, has to be given different meaning from "deposited". Otherwise, if it were the case that 'deposit' is included in the 'payment', then there would have been no necessity of using two different expressions, in different provisions, carrying different consequences. Deposit made in the court cannot be said to be payment made to the landowner i.e. persons interested/beneficiaries.
Thus, in case of deposit is directly made in the court without tender, it could not be said that it was tendered or paid. 'Deposit in court' simply is the discharge of Collector's liability of making payment of interest as envisaged under section 34 of the 1894 Act, and no more; deposit in Court is not tender to landowner. Once the amount has been tendered and not accepted, obligation to pay is discharged, as envisaged under section 31(1); no penal consequences can follow and, the person who has refused to accept cannot be permitted to take an advantage of his own wrong, or in case his conduct is of filing litigations, delaying the passing of the award or obtaining stay of the proceedings; such action would tantamount to refusal to accept compensation, and the person then may not even be entitled to higher rate of interest as envisaged under section 34.
44. While making statutory interpretation, inconsistency and repugnancy is to be avoided and harmonious construction has to be adopted. The construction to be adopted should be such, as would make the statute as a whole, a consistent enactment. Such a construction would have the merit of avoiding any inconsistency or repugnancy, either within a given section or as between a particular section on the one hand and other parts of the statute on the other. It is the duty of the courts to avoid "a head-on clash", as held in Raj Krushna v. Binod Kanungo, AIR 1954 SC 202, at 203; Sultana Begum v. Premchand Jain, AIR 1997 SC 1006, at page 1109; Kailash Chandra v. Mukundi Lal, (2002) 2 SCC 67; and, CIT v. 41 Hindustan Bulk Carriers, (2003) 3 SCC 57, at p.74.
45. When we apply the rule of harmonious construction to the provisions of section 24(2) of the Act of 2013, i.e. as between the main part of the section and its proviso, the word "paid" occurring in the main part, has to be construed differently (with a different meaning being given to it) from the word "deposited" occurring in the proviso; otherwise, inconsistency and repugnancy would be the result of the provision contained in section 24 (2) as a whole; and, that is what has to be avoided.
As discussed, the provisions would be irreconcilable, and an anomalous result would be occasioned. 46. This Court, in Balasinor Nagrik Cooperative Bank Limited vs. Babubhai Shankerlal Pandya, (1987) 1 SCC 606, held that a section is to be interpreted by reading all its parts altogether, and it is not permissible to omit any part thereof. Thus, in the instant case, proviso to Section 24(2) cannot be ignored while interpreting the main subsection.
47. The proviso is enacted as part of section 24(2); it is not an independent provision and applies to an acquisition made five years or before, in which amount, with respect to majority of holdings, has not been deposited in court. There has to be harmonized construction of provision of section 24(2).
48. Since there is no ambiguity of drafting in the provisions contained in section 24(2) of the Act of 2013, so also none is there in those contained in sections 31(1) and 31(2) of the Act of 1894. Thus, in discharging its interpretative function, to exercise the power to correct obvious drafting errors that can be done only in suitable cases where there is error of drafting. Before adding the word or omitting a word the court has to consider matters :
(1) the intended purpose of the statute or the provision in question,
(2) that by inadvertence the draftsman and Parliament failed to give effect
