Zamindar of Ettayapuram Vs. The State of
Madras  INSC 9 (5 February 1954)
MAHAJAN, MEHAR CHAND (CJ) DAS, SUDHI RANJAN
BOSE, VIVIAN ALAGIRISWAMI, A.
CITATION: 1954 AIR 257 1954 SCR 761
CITATOR INFO :
F 1954 SC 605 (2)
Madras Estates (Abolition and Conversion into
Ryotwari) Act, (Act XXVI of1948)--Validity thereof--Article 31(6) of the
The Madras Estates (Abolition and Conversion
into Ryotwari) Act, (Act XXVI of 1948) was passed by the Provincial Legislature
of Madras functioning under the Government of India Act, 1935 and it received
the assent of the Governor*General of India on the 2nd of April, 1949.
After the advent of the Constitution, the Act
was reserved for the certification of the President and it was certified on the
12th of April, 1950:
Held, that in view of the provisions of art.
31(6) of the Constitution the validity of the Act could not be challenged on
the ground that it contravened the provisions of s. 299(2) of the Government of
India Act, 1935.
Shankari Prasad Singh Deo v. Union of India
89), The State of Bihar v. Maharajadhiraja
Sir Kameshwar Singh ( S.C.R. 889) and Narayan Deo v. The State of Orissa
( S.C.R. 1) referred to.
CIVIL APPELLATE JURISDICTION: CIVIL APPEALS
Nos. 170 to 176 and 178 to 183 of 1953.
Appeals from the Judgment and Order dated the
22nd August, 1952, of the High Court of Judicature at Madras in Civil
Miscellaneous Petitions Nos. 13386, 13388,13390, 7812, 12003, 13188, 13262,
7822, 13123, 13347, 13341, 12997, 12494 of 1950 and Order dated 8th September,
1952, in C.M.P. No. 13936 of 1950.
K. S. Krishnaswamy lyengar (K. g.Champakesa
lyengar, with him) for the appellants.
V. K.T. Chari, Advocate-General of Madras (R.
Ganapathy lyer and V.V. Raghavan, with him) for the respondent (State of
Madras) in Civil Appeals Nos. 170 to 176 and 178 to 181.
M. Seshachalapathi for the respondent (State
of Andhra) in Civil Appeals Nos. 182 and 183.
1954. February 5. The Judgment of the Court
was delivered by MUKHERJEA J.
I2--95 S.C. I./59 762 MUKHERJEA J.--These
consolidated appeals, numbering fourteen in all, are directed against a common
judgment of a Division Bench of the Madras High Court dated the 23rd of August,
1952, by which the learned Judges dismissed the petitions of the different
appellants made under article 226 of the Constitution. The appellants are
landholders of Madras, holding zamindaries within that State, and in their
applications under article 226 of the Constitution they prayed for writs in the
nature of mandamus, directing the State of Madras to forbear from notifying and
taking over possession of the estates held by them and also to cancel the
notifications already issued, in exercise of its powers under the Madras
Estates (Abolition and Conversion into Ryotwari) Act, (Act XXVI of 1948). This
Act, the constitutional validity of which has been assailed by the appellants,
was passed by the Provincial Legislature of Madras functioning under the Government
of India Act, 1935, and it received the assent the Governor-General of India on
the 2nd of April, 1949. The avowed object of the Act is to abolish the
zamindary system by repealing the Madras Permanent Settlement Regulation of
1802, to acquire the rights landholders in the permanently settled and other
,estates and to introduce the Ryotwari system in all such estates. After the
advent of the Constitution, the Act was reserved for certification of the
President and it was certified on the 12th of April, 1950. In the petitions
presented by the appellants, a large number of grounds were put forward by way
of attacking the validity of the legislation which was characterised as
confiscatory in its character and subversive of the fundamental right of
property, which the petitioners had in the zamindaries held by them under the
Permanent Settlement Regulation. Pending the disposal of these petitions, the
Constitution (First Amendment) Act of 1951 was passed on 1st of June, 1951, and
this amendment introduced two new articles namely, article 31-A and 31-B in the
Constitution, apparently with a view to protect the 'various laws enacted for
acquisition of estates from being challenged under the relevant articles of
Part III of the 763 Constitution. Article 31-B specifically refers to a number
of statutes mentioned in the ninth Schedule to the Constitution and it declares
expressly that none of them shall be deemed to be void on the ground that they
contravened any of the fundamental rights, notwithstanding the decision of a
court or tribunal to the contrary. It is not disputed that Madras Act XXVI of
1948 is one of the statutes included in this schedule. It may be remembered
that an attempt was made to impeach the validity of the Constitution (First
Amendment) Act itself before this court in the case of Shankari Prasad Singh
Deo v. Union of India (1). The attempt failed and after the pronouncement of
this court in Shankari Prasad's case, the grounds upon which the writ petitions
of the appellants were sought to be supported became for the most part
unavailing. It appears that at the time of the final hearing of the
applications the arguments actually advanced on behalf of the petitioners were
aimed not at invalidating the enactment as a whole, but only some of its provisions,
firstly on the ground that there was no public purpose behind the acquisition
of some of the items of property mentioned therein and secondly, that the
provisions for compensation in certain aspects were colourable exercise of
legislative powers and constituted a fraud upon the Constitution Act of 1935.
These arguments were sought to be supported entirely on the authority of the
majority decision of this court in the case of The State of Bihar v.
Maharajadhiraja Sir Kameshwar Singh (2) to the extent that it pronounced two of
the provisions of the Bihar Land Reforms Act. 1950--a legislation similar in
type to the Madras Act 1948--to be unconstitutional. These contentions did not
find favour with the learned Judges of the High Court who heard the petitions
and holding that the principles enunciated by the majority of this court in the
Bihar case referred to above were not applicable to the impugned provisions of
the Madras Act, they dismissed all the petitions. Certificates, however, were
granted by the High Court to the petitioners (1)  S.C.R. 89.
(2)  S.C.R. 889.
764 under article 132(1) of the Constitution
and it is on the strength of these certificates that the appeals have' come
Mr. Ayyangar, appearing in support of these
appeals, has taken his stand solely upon the doctrine of' 'colourable
legislation' as enunciated by the majority of this court in the Bihar case
referred to above. He has very properly not attempted to make any point as to
the absence of a public purpose in regard to any of the items of acquisition,
since it is clear that according to the majority view of this court, as
explained in Narayan Deo v. State of Orissa (1), the existence of a public
purpose is not a justiciable issue in case of an enactment which having
fulfilled the requirements of clause (4) of article 31 of the Constitution
enjoys the protection afforded by it.
The contentions of Mr. Ayyangar, in
substance, are that the provisions of 'section 27(i) as well as of section 30
of the impugned Act are colourable legislative provisions which have been
enacted in fraud of the Constitution Act of 1935. It appears that in
determining the amount of compensation, that is to be paid under the Act, in
respect of an acquired estate, it is necessary, first of all, to ascertain what
has been described as the 'basic annual sum' in regard to that estate. The'
basic annual sum comprises several items or parts which have been set out in
section 27 and the subsequent sections of the Act, and it is upon the amount of
the basis annual sum determined in accordance with the provisions of these
sections that the total amount of compensation money payable to a proprietor is
made to depend. Mr. Ayyangar contends that section 27(i) of the Act, which lays
down that in computing the basic annual sum only one-third of the gross annual
Ryotwari demand of specified kinds is to be taken into account, is a colourable
provision which, ignores altogether the actual income derived from the property
and introduces an artificial and an arbitrary standard for determining the
income or profits which has absolutely no relation to facts.
Similarly, in computing the net miscellaneous
revenue, which is an (x)  S.C.R. .A.I.R. x953 8. G. 375 at P. 380.
765 element in the computation of the basic
annual sum, what is to be taken into account under section 30 is not the
average of net annual income which the proprietors themselves derived from the
sources, mentioned in the Act, when they were in possession of the estates, but
which the Government might derive from them in future years after the date of
notification. 'Thus if on account of mismanagement or for other reasons the
Government does not derive any income from these sources, the proprietor would
not have any compensation under this head at all. It is argued that these are
mere devices or contrivances aimed at , confiscation of private property and
they neither lay down nor are based upon any principle of compensation.
Whatever the merits of these contentions
might be, it appears to us that there is an initial and an insuperable
difficulty in the way of the learned counsel's invoking the authority of the
majority decision of this court in the case of The State of Bihar v. Maharajadhiraja
Sir Kameshwar Singh(1) to the circumstances of 'the present case. The Bihar
Land Reforms Act, 'which was the subject matter of decision in that case, was a
legislation which was pending at the time when the Constitution came into
force. It was reserved for consideration of the President and received his assent
in due course and consequently under clause (4)of article 31 of the
Constitution it was immune from judicial scrutiny on the ground that the
compensation provided by it was inadequate or unjust. With regard 'to two of
the provisions of the Act, however, which were embodied in sections 4 (b) and
23(f) of 'the Act, it was held by the majority of this court that they were
void as they really did not come within entry 42 of List III of Schedule VII of
the Constitution, under which they purported to have been enacted. Entry 42 of
List III speaks of "principles on which compensation for property acquired
or requisitioned for the purposes of the Union or of a State or for any other
public purpose is to be determined, and the form and the manner in which such compensation
is (1)  s.c.R. 889. 766 to be given." It was pointed out that entry
42 was undoubtedly the description of a legislative head and in deciding the
competency of a legislation under this entry, the court was not concerned with
the justice or propriety of the principles upon which the determination of the
compensation was to be made or the form or manner in which it was to be given.
But even then, the legislation must rest upon some principle of giving
compensation and not of denying or withholding it, and a legislation could not
be supported which was based upon something which was non-existent or was
unrelated to facts and consequently could not have a conceivable bearing on any
principle of compensation. The initial difficulty in the way of invoking this
doctrine in the present case lies in the fact that the legislation, which is
impugned here, was passed by the Madras Provincial Legislature functioning
under the Government of India Act, 1935, and' there was no entry in any of the
lists attached to the Act of 1935 corresponding to entry 42 in List I1I of the
Indian Constitution. The only entry relevant to. this point in the Act of 1935
was entry9 of List I1 which spoke merely of 'compulsory acquisition of land';
and it is clear that a duty to pay compensation or of' laying down any
principle regarding it was not inherent in the language of that entry. The
guarantee for payment of compensation, so far as the Constitution Act of 1935
is concerned, was contained in section 299 clause (2) which was worded as
"Neither the Federal Legislature nor a
Provincial Legislature shall have power to make any law' authorising the
compulsory acquisition for public purposes of any land, or any commercial or
industrial' undertaking ........
unless the law provides for the payment of
compensation for the property acquired and either fixes the amount of the
compensation, or specifies the principles on which, and the manner in which it
is to be determined." The appellants could have very well relied upon this
guarantee if a bar had not been created in their way by the provision of
article 31(6) of the Constitution. That clause of article 31 stands of follows:
767 "Any law of the State enacted not
more than eighteen months before the commencement of this Constitution may
within three months from such commencement be submitted to the president for
and thereupon, if the President by public
notification so certifies, it shall not be called in question in any court on
the ground that it contravenes the provisions of clause (2) of this article or
has contravened the provisions of sub-section (2) of section 299 of the
Government of India Act, 1935." It is not disputed that the Madras Act
XXVI of 1948 does fulfill all the requirements mentioned above.
Consequently, it is not possible for us to
allow the appellants to raise the contentions which the learned counsel on
their behalf wants to raise. The result is that the appeals would stand
dismissed, but in the circumstances of this case we shall make no order as
Agent for the appellants: S. Subramanian.
Agent for the respondents: R.H. Dhebar.