In Sudhakar Jha & Ors. vs. The State of Bihar and Ors. reported in 2024 (3) PLJR 403 (DB), the Division Bench of the Patna High Court of Chief Justice K. Vinod Chandran and Justice Partha Sarthy delivered a 174-page long judgement dated October13, 2023 upon hearing the applications which challenged the constitutional validity of the Bihar Land Reforms (Fixation of Ceiling Area and Acquisition of Surplus Land) (Amendment) Act, 2016 as also that of the Bihar Land Reforms (Fixation of Surplus Area and Acquisition of Surplus Land) (Amendment) Act, 2019. The operative part is from page no. 128 on wards. It was heard with numerous anlogous cases. The petitioners had also challenged the orders passed in their respective case by different authorities including the Additional Collector, the Commissioner of the Division and the Bihar Land Tribunal, all of which arose out of applications for pre-emption filed under section 16(3) of the Bihar Land Reforms (Fixation of Ceiling Area and Acquisition of Surplus Land) Act, 1961.
The applications contended that the amendments are against the fundamental rights guaranteed by Part III of the Constitution as also against the principles of natural justice. It was ultra vires Article 14 of the Constitution, against the legal rights and also takes away the vested right of an individual. Section 16(3) of the Act was repealed in an arbitrary manner without assigning any cogent reasons and the amendment was arbitrary, unconstitutional, unreasonable and ultra vires the parent Act. It should not be made applicable with retrospective affect. The amendment effected was not only in excess of the power granted under the Constitution; assent of the President; without which it was otiose, was not taken before its promulgation. The parties were harassed on account of pendency of the cases for decades and now the petitioners’ peremptory rights have been ordered to have abated. It was also contended that the amendment affected was beyond the competence of the State legislature and on account of repeal of section 45B of the Act, the statutory remedy of appeal/revision as was earlier available has been taken away without providing for any forum for adjudication of the disputes. The contention was that the amendments be declared ultra vires the Constitution and the same be set aside.
Kamal Nayan Choubey, senior counsel submitted that pursuant to Article 38 of the Constitution which provides a mandate for the State to secure a social order for the promotion of welfare of the people and Article 39, which lays down six Directive Principles, some of which are to ensure means of equal livelihood to men and women, ownership and control of resources be distributed to serve the best interest of the people, avoid concentration of wealth, ensure equal pay for equal work of men and women etc; legislative steps were taken in all the States as also in the State of Bihar. The same led to the enactment of the Bihar Land Reforms Act, 1950, the Bihar Consolidation of Holdings and Prevention of Fragmentation
Act, 1956 and the Bihar Land Reforms (Fixation of Ceiling Area and Acquisition of Surplus Land) Act, 1961. It was further contended that the Act which provided for fixation of ceiling area of land which a person could hold and the object of which was equitable distribution of land, after receiving the assent of the President was published in the gazette on April 19, 1962. At the time of all important amendments in the Act, whenever the State Government felt that major provisions are being deleted, the assent of the President was obtained. As the Presidential assent has not been obtained in the instant case, in absence thereof, the amendment is unconstitutional. He submitted that the Act was promulgated by the Government of Bihar pursuant to the subjects enumerated at item no.18 of the State List and item no.42 of the Concurrent List, of the 7th Schedule of the Constitution. Further, the Act having been enacted after obtaining the assent of the President, the same cannot be taken away in this manner. Even if it is held to be a curable defect, unless the defect is cured the same cannot be implemented.
Referring to the principles of law laid down in Taylor vs. Taylor, (1875) 1 Ch. D. 426 that where a power is given to do a certain thing in a certain way, the thing must be done in that way or not at all, Choubey, the senior counsel had contended that the Presidential assent was a mandatory requirement and even now assent could be obtained; without which the amendments would have no effect. It was next contended that the protection of Article 31A of the Constitution will not be available to the Amendment Acts, impugned herein, in absence of the President’s assent in view of the first proviso to Article 31A.
Choubey placed reliance on the judgments in Mahant Shankarshan Ramanuja Das Goswami vs. State of
Orissa & Anr., AIR 1967 SC 59; Sriram Narayan Medhi vs. The State of Maharashtra, AIR 1971 SC 199; State of Haryana vs. Jai Singh & Ors., 2022 SCC OnLine SC 418; Pt. Rishikesh & Anr. vs. Salma Begum, (1995) 4 SCC 718 and Anita Kushwaha vs. Pushap Sudan, AIR 2016 SC 3506.
Jitendra Kishore Verma, the counsel for the petitioner submitted that the right to pre-emption is a very old
right, history of which could be traced to the period of Mughals. The question to be asked is as to why section 16(3) of the Act was brought and has the constitutional goal or it’s purpose been achieved. For the purpose behind the ceiling law as also the law of pre-emption, placed reliance on judgments in Bhau Ram vs. Baij Nath Singh & Ors., AIR 1962 SC 1476 and Kedar Mishra vs. State of Bihar & Ors., AIR 2016 SC 2110. He relied on judgment in Ram Sagar Rai vs. The State of Bihar & Ors., 2017 (1) PLJR 2019 to submit that section 16(3) of the Act was a beneficial legislation enacted to prevent fragmentation of holding and to facilitate consolidation. A statute is best interpreted when we know as to why it was enacted; reference may be made to the case of Gaurav Aseem Avtej vs. U.P. State Sugar Corporation. Ltd. & Ors., (2018) 6 SCC 518. In Atam Prakash vs. State of Haryana & Ors., AIR 1986 SC 859 the right of pre-emption was held to be reasonable as also constitutionally valid. Reliance was also placed on the judgment in Suresh Prasad Singh vs. Dulhin Phulkumari Devi & Ors., 2010 (2) PLJR 167 (SC), wherein, it was held that the right has been recognised by the statute.
J. S. Arora, learned senior advocate, appearing on behalf of the petitioners placed reliance on the judgment in Godavari Sugar Mills Ltd. vs. S.B. Kamble & Ors., AIR 1975 SC 1193 to submit that for the State to claim immunity of Article 31B of the Constitution, although, the original Act was in the 9th Schedule, it was required that the amending Act also be in the 9th Schedule and for the same, assent of the President is required to be obtained. It was further submitted that the amendment creates ambiguity in so far as it does not provide as to how the landlord gets his land back. Even if a person was entitled to get the land as pre-emptor, the proceedings having abated, the person gets back his amount which included the consideration amount with 10% thus causing great hardship. The Court should examine it’s rationality, which in view of the judgment of the Supreme Court in I.R. Coelho vs. State of Tamil Nadu, AIR 2007 SC 861, could be done even if the law was granted protection by including the same in the 9th Schedule of the Constitution. With regard to the Amendment Act, 2016, Arora submitted that in case land of some person was sold without his knowledge and later he comes to know about it being subject matter of a ceiling proceeding, on deletion of section 45B of the Act, he becomes remedy-less. This type of amendment cannot be upheld.
Nagendra Rai, the counsel appearing for the petitioners submitted that section 45B of the Act was introduced by way of amendment in the year 1978. There are three categories of transfers. One of the period prior to 1959 for which there was no embargo, the second for the period from 1959 to 1970 when permission of the Collector was to be sought and lastly for the period after the cut-off date of September 9, 1970. Section 9 of the Act deals with exercise of option and how land transferred is to be adjusted. The judgment in Bisheshwar Prasad Yadav vs. State of Bihar & Ors., 1999 (3) PLJR 117 provides that land transferred in contravention of section 5 of the Act, to the extent not exceeding ceiling area be deemed to have been selected by him within the ceiling area. Reliance was also placed on the judgement in Mohammad Kajimuddin vs. State of Bihar, 2005 (4) PLJR 718 where it was held that transfers made in contravention of section 5(i) and (ii) of the Act will go in share of the land holder and shall not form part of surplus to be acquired by the State. It was lastly submitted that in Sunil Kumar vs. State of Bihar, 2004 (2) PLJR 820 the scope of application of section 45B of the Act has been dealt with. By deletion of section 45B, large number of persons will be left remedy-less.
P. K. Shahi, Advocate General appearing for the State of Bihar submitted that there was no argument by the petitioners on the legislative competence of the State to legislate. The grounds that an Act can be held to be not constitutionally valid, are mainly the same being in violation of Part III of the Constitution, the State lacking legislative competence or the same being violative of some other provision of the Constitution. The power to legislate was solely with the State, which would be evident form perusal of Item no.18 of the State List under the Seventh Schedule. It was submitted that only in the case of a law falling under the scope of Article 31A of the Constitution that the assent of the President was required. So far as the principal Act as originally enacted in the year 1961 is concerned, the same deals with the acquisition and vesting of land. The Act received the President’s assent on March 8, 1962 and was published in the Bihar Gazette (Extraordinary) on 19.4.1962. Section 16(3) or section 45B of the Act not being in violation of any provision of the Constitution, no presidential assent was required. It was submitted that the right of pre-emptor was not a fundamental right but a statutory right which flowed from the Act. No law can be invalidated only on account of some person facing difficulty. The ground on which an Act could be declared unconstitutional are that it contravenes any fundamental right, legislating on a subject which is not assigned to the relevant legislature, contravenes a mandatory provision of the Constitution or in case of a State law it seeks to operate beyond its boundaries and impinges upon the legislative power of the Union Parliament. The Advocate General submitted that it was not that section 45D of the Amending Act, 2016 was challenged but the entire Amendment Act was under challenge. The newly added section 45D provides that after repeal of section 45B of the Act, the proceedings pending before the State Government or the Bihar Land Tribunal shall be deemed to be abated and the proceedings reopened earlier under the now deleted section 45B of the Act and pending before the Collector shall also stand abated. This amendment was introduced to give a quietus to the issues. It was lastly submitted that whole of the principal Act could also be repealed and in so repealing, neither any Presidential assent was required nor any other provision of the Constitution would come in the way of such repeal.
Basant Kumar Choudhary, senior advocate appearing for the respondents, submitted that the original Ceiling Act is a progressive legislation. So far as section 16(3) of the Act which dealt with the right of pre-
emption is concerned, the same was a supplementary right and not main purpose of the Act. The High Court in Banarsi Yadav vs. Krishna Chandra Das, 1971 BJR 1077 held that the Act being a protective legislation cannot be challenged on the ground of violation of Articles 14 and 19, section 16(3) of the Act was held to be valid and the reference made held to be incompetent. It was also submitted that section 16 of the Act did not help in consolidation and section 16(3) is not protected by the 9th Schedule. The informed wisdom of the State Legislature cannot be questioned nor are the amendments ultra vires. A Full Bench of the High Court vide its judgment dated March 12, 1951 declared the Bihar Land Reforms Act, 1950 as ultra vires on the ground of it infringing Article 14 of the Constitution, which led to the first Constitutional amendment and such laws were included in the 9th Schedule of the Constitution. The Bihar Land Reforms (Fixation of Ceiling Area and Acquisition of Surplus Land) Act, 1961 was enacted, it received the assent of the President on 8.3.1962 and was published in Bihar Gazette (Extraordinary) on 19.4.1962. It was an Act to provide for fixation of ceiling, restriction on subletting and resumption by certain raiyats for personal cultivation of land, acquisition of status of raiyat by certain under-raiyats and acquisition of surplus land by the State, the object being equitable distribution of land.
By the Amendment Act, 2019, sub-section (3) of section 16 of the Act, which gave the right of pre-emption was repealed and sub-section (4) was added to section 16 which provided that all cases or proceedings pending before any of the authorities/tribunals/Court shall be deemed to have abated and the purchase money together with the sum equal to 10% shall be refunded to the depositor without any interest. By the Amendment Act, 2019, amendments were carried out in section 16 of the Act. Section 16(3) which gave the Right of Pre-emption was repealed and newly added section 16(4) provided that all cases of proceedings after repeal of section 16(3) shall abate and the purchase money together with 10% thereof, without any interest, shall be refunded to the depositor.
By the Bihar Land Reforms (Fixation of Ceiling Area and Acquisition of Surplus Land) (Amendment) Act, 2016, besides adding new sub-sections (3) and (4) to section 30 and sub-section (4) to section 32, section 45B of the Act was repealed. Further, a new section 45D was added which provided that the proceedings pending before the State Government or the Bihar Land Tribunal or those reopened under the deleted section 45B and pending before the Collector shall all stand abated.
The judgement was authored by Justice Partha Sarthy. In the penultimate paragraph, it reads: "....the Court finds no merit in the challenge by the petitioners in these batch of cases to the Constitutional validity of the two Amendment Acts. Both, the Bihar Land Reforms (Fixation of Ceiling Area and Acquisition of Surplus Land) (Amendment) Act, 2016 and the Bihar Land Reforms (Fixation of Ceiling Area and Acquisition of Surplus Land) (Amendment) Act, 2019 are held to be constitutionally valid. 49. Both the amendment Acts of 2016 and 2019 having been held to be Constitutionally valid, the question which would arise is as to how would the individual cases, arising out of an application of right to pre-emption under section 16(3) of the Act and which are pending adjudication at different stages are to be decided. The right of preemption which arose from section 16(3) of the Act having been repealed by the Amendment Act, 2019, it may be stated that clause 2(2) of the Amendment Act, 2019 provides that after repeal of section 16(3) of the Act, all cases or proceedings pending before the State Government, Board of Revenue, the Bihar Land Tribunal, the Divisional Commissioner, the Collector, the Additional Collector, the Deputy Collector Land Reforms or in any other Court shall be deemed to be abated and pursuant to the repeal any purchase money together with the sum equal to 10% thereof shall be refunded to the depositor, without any interest."
The judgement concluded: "52. The applications stand disposed of in the following terms:-(i) The applications so far as the challenge to the constitutional validity of the Bihar Land Reforms (Fixation of Ceiling Area and Acquisition of Surplus Land) (Amendment) Act, 2016 as also that of the Bihar Land Reforms (Fixation of Surplus Area and Acquisition of Surplus Land) (Amendment) Act, 2019 are concerned, stand dismissed.... Both Section 45D and 16(4) provide for the consequence upon repeal of Section 45B and Section 16(3) of the Act. The language of Section 45D is different from that of Section 16(4). While Section 16(4) provides that all cases of proceedings pending before the Tribunal or the Authorities mentioned therein 'or in any other Court' shall abate, the words 'or in any other Court' does not find mention in Section 45D. Thus, in this view of the matter, the Court is of the opinion that those matters arising out of an application under Section 45B of the Act having been decided by the Authorities or the Tribunal and applications preferred against the said orders being pending in this Court, though the Constitutional validity of the Amendment Act, 2016 has been upheld, these cases will have to be listed before the appropriate bench having roster, for it to be decided on it's own merits.....”
