Holding

Chapter XX‑C is constitutionally valid but must be read to require a reasonable opportunity to be heard and the "free from all encumbrances" clause is struck down/read down to preserve existing bona‑fide encumbrances.

Summary

The petitioner C.B. Gautam sought to purchase a lease‑hold plot in Delhi, but the Income Tax authority ordered its compulsory purchase by the Central Government under Section 269UD of the Income‑Tax Act, 1961, without giving any reasons or a chance to be heard. The Supreme Court examined whether Chapter XX‑C of the Act, which allows pre‑emptive purchase to curb tax evasion, violates Article 14 by granting unfettered discretion, and whether the lack of a show‑cause notice breaches natural‑justice principles. The Court held that the provisions are not per se unconstitutional and do not confer arbitrary discretion, but a reasonable opportunity to be heard must be read into the statute and the clause that property vests "free from all encumbrances" must be read down. Consequently, the order without a show‑cause notice was set aside, and the petitioner was allowed to file a fresh application with a proper hearing; interest on the purchase price was also directed.

Issues considered

The constitutional validity of Chapter XX‑C (Sections 269UD‑UE) of the Income‑Tax Act, 1961, particularly whether it confers unfettered discretion violating Article 14.
Whether the statutory scheme complies with principles of natural justice, i.e., the need for a show‑cause notice and opportunity to be heard before a compulsory purchase order.
Whether the requirement to record reasons in writing suffices, or reasons must be communicated to the affected parties.
The validity of the provision that property purchased under Section 269UD vests in the Government "free from all encumbrances" and whether it can be read down.
The effect of the order on encumbrance holders, lease‑holders and monthly tenants.
The appropriate remedy for the petitioner and the retrospective effect of the judgment.

Legislation cited

Constitution of Indias. Article 14, s. Article 19(1)(g)
Income Tax Act, 1961s. 269UC, s. 269UD(1), s. 269UD(2), s. 269UE(1), s. 269UE(2), s. 269UE(5), s. 269UE(6), s. 269UF, s. 269UG, s. 269UH, s. 269UK, s. 269UM, s. 269UN, s. 269UO
Transfer of Property Act, 1882

Subjects

Income TaxCompulsory purchasePre‑emptive purchaseTax evasionArticle 14Natural justiceShow cause noticeEncumbrancesLeasehold rightsReading downConstitutional validity

Judgment

A C.B. GAUTAM
v.
. UNION OF INDIA AND ORS.

NOVEMBER 17, 1992/NOVEMBER 27, 1992
B
(M.H. KANIA, CJ. J.S. VERMA, s:c. AGRAWAL, YOGESHWAR
DAYAL AND DR. A.S. ANAND, JJ.]

Income Tax Act, 1961: Chapter XX-C-Sections 269-UD, 269
UE-Compulsory pre-emptive purchase of property by Government to check
C tax evasiori-Constitutional validity of-Reasons for such purchase
recorded-Whether a substitiite for opportunity of hean"ng-Such reasons to
be inc01porated in the order or recorded separately and communicated--Op-
portunity to show cause+-Need for-Vesting of property in Central Govern-
ment-'Free from all encumbrances' -Whether violative of Article 14 of the
D Constitution-Whether could be read down-Monthly tenancies in such
properties-Whether terminated on" acquisition by Government-Section 269
UD(l)-To clan"fy that encumbrance or lease created to defeat provisions of
Chapter XX~C would be void-Amendment-Suggested.

Constitution of India, 1950: Article 14--Chapter XX-C of Income Tax
E Act-Check on. Tax evasion-compulsory purchase of property by Govem-
ment-,-Free from all encumbrances-Whether .violative of

Administrative Law: Pn"nciples of Natural Justice-Provisions for
recording reasons-Whether a substitute for opportunity of hean"ng-Com-
F municating reasons-Ne.cessity of-Show cause notice-Affording of-Need
for even though not provided in the statute.

The petitioner proposed to purchase a plot of land from its owner
· who held it under a lease executed by the Delhi Development Authority
(DDA). Initially the owner entered into an agreement to transfer the
G leasehold rights in the said property to the petitioner and paid an advance.
On the sa~e day an agreement for the construction of a structure on the
· said plot was entered into between the owner and the petitioner. Thereafter
a fresh agreement to sell the said plot along with the leasehold rights in
the said land was executed, wherein the owner agreed to transfer to the
H petitioner his leasehold rights in the said land along with the ownership
12
C.B. GAUTAM. v. U.0.I. 13

of the building put up thereon for Rs.16 lakhs. The petitioner was also A
liable under the agreement to pay Ks.3.4 lakhs to DDA on account of
unearned increase. As per the requirements of Section 269 UC of the
Income Tax Act, 1961 the said agreement to sell the property along with
Form 37-1 giving the required particulars, was furnished to the ap-
propriate authority. After getting the report of the registered valuer, the B
appropriate authority passed an order for purchase of the property by the
Central Government under Section 269 UD (1) of the Income Tax Act and
served the same on the petitioner. No specific reason was given for the
compulsory purcha~e of the property. The order of the appropriate
authority was challenged by the petitioner before the High Court by
way of a Writ Petition. This Court transferred to itself the said Writ C
Petition.

On behalf of the petitioner, it was col)tended that no guidelines were
- prescribed in Chapter XX-C of the Income Tax Act for the exercise of the
drastic power of pre-emptive purchase wherein the Government was not D
even required to comply with the provisions of the Transfer of Property
Act in regard to title of the property, and so the provisions of Chapter
XX-C confer unfettered discretion on the appropriate authority, which is
arbitrary; that the provisions of Chapter XX-C were bad in law as they did
not comply with principles of Natural Justice as no opportunity was to be E
given to the intending purchaser; that the requirement of recording
reasons was not sufficient in the absence of recording them in the order
of purchase or communicating the reasons to the transferor or the trans-
feree along with the Order; that there has been failure to provide the mode
of valuation of property where the title was disputed or the sale was part
of a resolution of some dispute between the transferor and the transferee
F
or where there was an adjustment in the price on account of tenancy rights
vested in the transferee or on account of encumbrance etc.; and that a law
providing for the acquisition or compulsory purchase of immovable
property, even in the absence of any proof of tax evasion, would violate the
provisions of Articles 14 and 19(1) (g) of the Constitution of India as being 0
excessive and unreasonable. It was also contended that the provisions of
Chapter XX-C were bad in law as there was no appeal or revision provided
against orders made by appropriate authorities and such order had
serious civil consequences and cast aspersion on the parties of attempted
tax evasion; and that the rights of monthly tenants and mortgages and p
14 SUPREME COURT REPORTS [1992) SUPP. 3 S.C.R.

A other encumbrance holders would be affected, as they could only claim a
share in the compensation awarded to the owner, which cannot substitute
their secured rights in the immovable property.

On behalf of the respondents, it was contended that in pursuance of
B Wanchoo Committee's report, Chapter XX-A was introduced in the In-
come Tax Act, but as those provisions were found inadequate for dealing
with the evil of under-valuation of immovable properties in sale deeds and
agreements to sell, Chapter XX-C was introduced into the Income Tax Act ·
and these very reasons furnish adequate quidelines for the exercise of
power conferred under Chapter XX-C; that the provisions of Chapter
c XX-C were not penal in nature and the rights of the Transferor were not
prejudicially affected as he would get the consideration for which he agree
to sell the property under the agreement to sell; that where the price might
have been lowered for bona fide reasons like sale to close relatives specific
provisions exist; that the interest of transferee was not affected since an
D agreement by itself would create no interest in the property under the
provisions of Transfer of Property Act; that after the deletion of Article
19(1), there was no fundamental right to acquire any immovable property;
that there was no violation of principles of Natural Justice as the affected
person could challenge the order of purchase as arbitrary by filing a
E petition before a Court of law and the authorities would have to disclose
the reasons to satisfy the Court that they acted on relevant considerations
germane ta the object of Cha!Jter XX-C in taking the decision to purchase
the property; that since the decision to purchase a property was taken by
three high officers who have adequate knowledge in the matter, lack of
provision for appeal or revision would not make any difference, that
F
Chapter XX-C did not provide for communicating the reasons; that as
regards tenants and mortagages the property purchased under Section 269
UD would vest in the government free from all encumbrances; that how-
ever, the provisions could be read down in such a way that encumbrances
on the property in question and Jong term leases thereon which created
G · interests in favour-of parties who might have nothing to do with tax evasion
attempted in the sale of immovable property would not be affected by the
acquisition; that unless the agreement provided for sale of the property
free from ·encumbrances or leasehold rights, such encumbrances or
leaseholds rights in the property would not be affected; that since tenancies
H created no interest in the properties,. the monthly tenants could not have
C.B. GAUTAM. v. U.O.I. 15

any grievance; and that the property vested in the Government only on A
possession being taken by it and till such time the owner continued to be
in possession, he had no right to claim interest.

Allowing the Writ Petitfon, this Court,

HELD: 1.1. The very historical setting in which the provisions of B
Chapter XX-C of the Income Tax Act, 1961 were enacted'suggests that it
was intended to be resorted to only in cases where there is an attempt at
tax evasion by significant under-valuation of immovable property agreed
to be sold. This conclusion is strengthened by instruction No.1A88 issued
by the Central Board of Direct Taxes, Government of India, Ministry of C
Finance, Department of Revenue which emphasised that the main objective
of the provisions of Chapter XX-C is to check proliferation of black money
in real estate transactions and to enforce declaration of the true value of
immovable properties that are the subject of transfer between the parties.
The Central Board has pointed out in the said Instructions that, in
administering the provisions of the said Chapter, it has to be ensured that D
no harassment is caused to bona fide and honest purchasers or sellers of
immovable property and there is no erosion of the confidence of the public
in the sense Qf justice and fair play of the Income Tax Department.
(36-E-H, 37-A]
1.2. The powers of compulsory purchase conferred under the E
provisions of Chapter XX-C of the Income Tax Act, f 961 are intended to
be used only in cases where in an agreement to sell an immovable property
in an U:'ban area to which the provisions of the said Chapter apply, there
is a significant undervaluation of the property concerned, namely, of 15
percent or more. If the appropriate authority concerned is satisfied that F
in an agreement to sell immovable property in such areas as set out earlier,
' the apparent consideration shown in the agreement for sale is less than
the fair market value by 15 per cent or more it may draw a presumption
that this under-valuation has been done with a view to evade tax. or course,
such a presumption is rebuttable and the intended seller or purchaser can
lead evidence to rebut such a presumption. Moreover, an order for com- G
pulsory purchase of immovable property under the provisions of Section
269 UD requires to be supported by reasons in writing and such reasons
must be germane to the object for which Chapter XX-C was introduced in
the Income Tax Act, namely, to counter attempts to evade tax.
(38-F, H; 39-A, B] H
16 SUPREME COURT REPORTS [1992) SUPP. 3 S.C.R

A 1.3. It cannot therefore said that the provisions of Chapter XX·C
confer an unfettered discretion on the appropriate authorities to order the
purchase by the Central Government of immovable properties agreed to
be sold. The provisions cannot also be regarded as conferring arbitrary
discretion on the appropriate authorities. Hence the provisions of the said
Chapter are not violative of Article 14 of the Constitution. [41-D]
B
CIT, Gi~arat-!J v. Smt. Vimlaben Bhagwandas Patel & Anr., (1979)
118 ITR 134, approved.

KP. Varghese v. Income Tax Officer, Emakulam & Anr., (1981) 131
C ITR 597, referred to.

2.1. It must be borne in mind that courts have generally read into
the provisions of the relevant sections a requirement of giving a reasonable
opportunity of being heard before an order is made which would have
adverse civil consequences for the parties affected. This would be par-
D ticularly so in a case where the validity of the section would be open to a
serious challenge for want of such an opportunity. (43-F]

2.2. The time frame within which the order for compulsory purchase
has to be made is a fairly tight one but the urgency is not such as would
E preclude a reasonable opportunity of being heard or to show cause being
given to the parties likely to be adversely affected by an order of purchase
under Section 269 UD(l). The enquiry pursuant to the explanation given
by the lntending purchaser or the intending seller might be a somewhat
limited cme or a summary one but it cannot be said that the time limit
provided is so short as to preclude an enquiry or show cause altogether.
F (43-G, H; 44-A]
2.3. Therefore the· requirement of a reasonable opportunity being
given to the concerned parties, particularly to the intending purchaser and
the intending seller must be read into the provisions of Chapter XX-C.
Before an order for compulsory purchase is made under Section 269 UD,
G the intending purchaser and the intending seller must be given a
reasonable opportunity of showing cause against an order for compulsory r
purchase being made by the appropriate authority concerned. The
provisions of Chapter XX-C can be resorted to only where there is a
significant under-valuation of property to the extent of 15% or more in the
H agreement of sale, as evidenced by the apparent consideration being .lower

'
C.B. GAUTAM. v. U.0.1. 17

than the fair market value by 15% or more. Although a presumption of an A
attempt to evade tax may be raised by the appropriate authority concerned
in case of the aforesaid circumstances being established, but such a
presumption is rebuttable and this would necessarily imply that the con·
cerned parties must have an opportunity to show cause as to why such a
presumption should not be drawn. Moreover, in a given transaction of an
agreement to sell there might be several bo~a fide consideration which
B
might induce a seller to sell his immovable property at less than what
might be considered to be the fair market value. There might to some
dispute as to the title of the immovable property as a result of which it
might have to be sold at a price lower than the fair market value or a
subsisting lease in favour of the intending purchaser. There might similar- C
ly be other genuine reasons which might have led the seller to agree to sell
the property to a particular plirchaser at less than· the market value even
in cases where the purchaser might not be his relative. Unless an intending
purchaser or intending seller is given on opportunity to show cause against
the proposed order for compulsory purchase, he would not be in a ·position D
to rebut the presumption of tax evasion. To give an interpretation to the
provisions which would lead to such a result would be utterly unwarranted.
The very fact that an imputation of tax evasion arises where an order for
compulsory purchase is made and such an imputation casts a slur on the
parties to the agreement to sell lead to the conclusion that before such an
imputation can be made against the parties concerned, they must be given E
an opportunity to show cause that the under-valuation in the agreement
for sale was not with a view of evade tax. Although Chapter XX-C does not
contain any express provision for the affected parties being given an
opportunity to be heard before an order for purchase is made under
Section 269 UD, not to read the requirement of such an opportunity would
be to give too literal and strict an interpretation to the provisions of F
Chapter XX-C. There is no express provision in Chapter XX-C barring the
giving of a show cause notice nor is there anything in the languace of
Chapter XX-C which would lead to such an implication. The observance
of principles of natural justice is the pragmatic requirement of fair play
in action. Therefore, the requirement of an opportunity to show cause G
being given before an order for purchase by the Central Government is
made by an appropriate authority under Section 269 UD must be read into
the provisions of Chapter XX-C. There is nothing in the lan~uage of
Section 269 UD or any other provision in the said Chapter which would
negate such an opportunity being given. Moreover, if such a requirement H
·.·

18 SUPREME COURT REPORTS (1992) SUPP. 3 S.C.R.

A were not read into the provisions, they would be seriously open to challenge
on the ground of violation of the provisions of Article 14 on the ground of
non-compliance with principles of natural justice. The provision that when
an order for purchase is made under Section 269 UD, reasons must be
recorded in writing is no substitute for a provision requiring a reasonable
opportunity of being heard before such an order is made. (44-B-H; 45-A·E]
B
Union of India v.J.N. Sinha &Anr., (1971) 1 SCR 791 and Olga Tellis
& Ors. v. Bombay Municipal Corporation & Ors. etc., (1985) Suppl. 2 SCR
51, relied on.

3. Section 269 UD(l), in express terminology, provides that the
c appropriate authority may make an order for the purchase of the property
"for reasons to be recorded in writing". Section 269 UD(2) casts an obliga-
tion on the authority that it ''shall cause a copy of its order under
sub-section (1) in respect of any immovable property to be served on the
transferor". It is, therefore, inconceivable that the order which is required
D to be served by the appropriate authority under sub-section (2) would be
the one which .does not contain the reasons for the passing of the order or
is not accompanied by the reasons recorded in writing. It may be permis-
sible to record reasons separately but the order would be an incomplete
. order unless either the reasons are incorporated therein or are served
E separately along with the order on the ·affected party. The reasons for the
order must be communicated to the affected party. [46-B-D]

Govemment of India and Anr. v. Maxim A. Lobo and Anr., (1991) 190
ITR 101, approved.

F Vidyavati Kapoor Trust v. Chief Commissioner of Income Tax and Ors.,
(1992) 194 ITR 584, overruled.

4.1. An order for compulsory purchase· results in the rights of
holders of encumbrances and leasehold rights being destroyed or sig-
G nificantly dif!1inished. In a given case it might happen that the property is
intended to be sold under an agreement to sell subject to encumbrances
and leasehold rights, and very often agreement to sell the immovable
property may not provide that the property sold would be free from
encumbrances or leasehold rights. In such a case, the apparent considera-
tion, even if it is equivalent to the fair market value, would be indicative
H of the market value of the property subject to such encumbrances. If, in
C.B. GAUTAM. v. U.0.1. 19

such a case an order for compulsory purchase is made, the result would A
be that the property would be compulsorily purchased and the amount to
be paid for the purchase would be only equal to the apparent consideration
which would not take into account the value of the encumbrances on the
property like mortgages or the leasehold rights and so on. A property may
be heavily encumbered and its value can be considerably depressed if it
B
were sold subject to encumbrance~. So also a property in respect of which
there.is a subsisting lease for a substantial period of time would fetch a
comparatively low price because the purchase thereof would not carry with
it the right to possession or occupation during the subsistence of the
leasehold interests. In such cases, the amount of apparent consideration
could be even less than the value of the encumbrances or the leasehold C
interests. An order for compulsory purchase in such cases would neces-
sarily result in gross injustice to the encumbrance holders and lessees and
to their being deprived of their rights without they being in the any way
involved in an attempt at tax evasion. It is, therefore, difficult to uphold
the last part of sub-section (1) of Section 269 UE insofar as it provides D
that the property in respect of which an order under sub-section (1) of
Section 269 UD is made shall vest in the Central Government free of all
encumbrances. The expression "free of all encumbrances" is liable to be
struck down as arbitrary, without any rational nexus with the object of the
legislation in question and violative of Article 14 of the Constitution.
Similarly, the provisions of sub-section (2) of Section 269 UE must be read E
down so as to make them inapplicable to bona fide lessees in possession
or bona fide encumbrance holders in possession. [47-F-H; 48-A-E] .

4.2. In order to save a statute or a part thereof from being struck
down it can be suitably read do\vn. But such reading down is not permis- F
sible where it is negatived by the express language of the statute. Reading
down is not permissible in such a manner as would fly in the face of the
express terms of the statutory provisions. In view of the express provision
in Section 269 UE that the property purchased would vest in the Central
Government "free from all encumbrances" it is not possible to read down
the section. [49-F, G] G

4.3. The expression ''free from all encumbrances" in sub-section (1) of
Section 269 UE is struck down and sub-section (1) of Section 269 UE must
be read without the expression ''free from all encumbrances" with the result
the property in question would vest in_ the Central Government subject to H
20 SUPREME COURT REPORTS [1992) SUPP. 3 S.C.R.

A such encumbrances and leasehold interests as are subsisting thereon
except for such of them as are agreed to be discharged by the vendor: before
the sale .is completed. If under the relevant agreement to sell the property
it is agreed to be sold free of all emcumbrances or certain emcumbrances-
it would vest in the Central Government free of such encumbrances.
Similarly, sub-section (2) of Section 269 UE will be read down so that if
B the holder of an encumbrance or a lessee is in possession of the property
and under the agreement to sell the property it is not provided that the
sale would be free of such encumbrances or leasehold interests, the en-
cumbrance holder or the le.ssee who is in possession will not be obliged to
deliver the possession of the property to the appropriate authority or any
C person authorised by it and the provisions of sub-section (3) also would
not apply to such persons. If the provisions of Section 269 UE are read
down in the manner indicated above then the provisions of sub-section (6)
of that section do not present any difficu!ty because the vesting in the
Central Government would be subject to such encumbrances and leasehold
D rights. f 49-G, ff; 50-A-C]

Rambliai Manja Nayak v. Union of India, (1983) 142 ITR 239, distin-
guished.

5. As far as monthly tenancies are concerned, they do not pose any
E difficulty because monthly tenants are also lessees in law although their
right is a very limited one. If the agreement to sell does· not provide for
vacant possession or the determination of monthly tenancies, such tenan-
cies would continue even on an order for purchase by the Central Govern-
ment being made by the appropriate authority concerned under Section
F 269 UD(l); but such tena.nts would loss the protection given to tenants
under the rent protection laws because such laws are not made applicable
to properties owned by the. Central Government with the result that their
tenancies could be terminated by the Central Government. The loss of the
protection of the rent control acts cannot be regarded as an interest for
which any compensation is liable to be paid. [50-D-F]
G
6.1. Wliere an agreement for sale provides that the property is
intended to be sold free of all emcumbrances or leasehold rights, the order
for purchase of such property under Section 269 UD (1) would result in
the said property vesting in the Central Government free of such en-
H cumbrances or leasehold interests. In such a case the holders of the
C.B. GAUTAM. v. U.0.1. 21

encumbrances and leasehold interests wmdd have to obtain their compen• A .
sation from the amount awarded as the purchase price to the owner of the
property. This appears to be a fair construction because in such a case the
apparent consideration can be expected to include the value of such
leasehold interests or encumb~nces. The holders of the encumbrances
and leasehold interests which would be destroyed in this manner can be
said to be persons interested as contemplated in clause (e) of sub-section B
(2) of Section 269 UA. Sub-section (5) of Section 269 UE makes it amply
clear that such persons viz., the encumbrance holder or the holder of the
leasehold rights could claim the fair value of his encumbrance or the
leasehold interest out of the amount paid on account of the purchase price
to the owner of the immovable property acquired by the Central Govern- C
ment under Section 269 UD. [50-G, H;,51-A-D]

6.2. If a lt:ase or an encumbrance is found to be bogus it can be
treated as of no legal effect and in that event it would not affect any of the
rights of the Central Government on the vestiqg of the property in the
event of an order for purchase being made under Section 269 UD (1). If it D
is so considered necessary the provisions of the Chapter might be so
amended as to clarify that if any lease or encumbrance is created with a
view to defeat the provisions of Chapter XX-C such lease or encumbrance
will be regarded as void or ignored for the purposes of the 'said Chapter.
That, however, is for the Parliament to consider. [51-E, F] E

7. In the instant case, the order for compulsory purchase under
Section 269 UD (1) of the Income Tax Act which was served on the
petitioner on the night of 15th December, 1986, has been made without any
show cause notice being served on the petitioner and without the petitioner F
or other affected parties having been given any opportunity to show cause
against an order fQr compulsory purchase nor were the reasons for the
said order set out in the order or communicated to the petitioner or other
concerned parties along with the order. Hence the order is clearly bad in
law and it is set aside. (51-H; 52·A]
G
8. In view of the fact that the object of the provisions of Chapter
. XX-C is a laudable object, namely, to counter evasion of tax in transactions
of a sale of immovable property, it is necessary to limit the retrospective
operation of this judgment in such a manner as not to defeat the acquisi-
tions altogether. If the original time frame prescribed in Chapter XX-C is H
22 SUPREME COURT REPORTS [1992) SUPP. 3 S.C.R.

A rigidly applied it would not be possible for the appropriate authority
concerned to pass an order under Section 269 UD (1) at all in respect of
the property in question. In order to avoid that situation and, yet to ensure
that no injustice is caused to the petitioner, the statement in Form 37-I
submitted by the petitioner shall be treated as if it were submitted on the
date of this judgment. Thereafter if the appropriate authority considers it
B fit, it may cause a sh~w cause notice calling Qpon the petitioner and other
concerned parties to show cause why an order for compulsory purchase of
the property in question should not be made under the provisions of
sub-section (I) of Section 269 UD and give a reasonable opportunity to the
petitioner and such other concerned parties to show cause against such an
C order being made. In view of the limited time-frame this will have to be
done with a sense of urgency. It after such an opportunity is given the
appropriate authority so considers it fit, it may hold an ·enquiry, even
though summary in nature, and may pass an order for compulsory pur·
chase by the Central Government of the property in question under Section
D 269 UD (1): The appropriate authority will have to decide whether an
inquiry is called for in the facts and circumstances of the case after the
show cause notice is issued. [52-B-F]

India Cement Ltd. v. State of Tamil Nadu, [1990] 1SCC12, relied on.

E 9. If the order for compulsory purchase of the property is made
hereafter the intending vendor will ~offer to some extent by reason of the
fact that he will get the purchase amount several years after the time he
would have got it had the order under challenge been held valid. However,
he would have retained the possession of the property in question. Taking
F into account these factors and taking note of the fact that immovable
properties in urban areas have gone up steeply in value during the last few
years, it is directed that in case an order for compulsory purchase is made
the Central Government shall pay to the intending seller the amount of
the apparent consideration plus interest at 9 per cent per annum from the.
date the order challenged against was made. [53-A-C]
G
10. As far .as completed transactions are concerned, namely, where
after the order for compulsory purchase under Section 269 UD of the
Income Tax Act was made and possession has been taken over, compen-
sation paid to the owner of the property and accepted without protest,
H there is no reason to upset those transactions and hence, nothing said in
<

C.B. GAUTAM. v. U.0.1. [KANIA, CJ.) 23

this judgme..t will invalidate such purchases. The same will be the position A
where public auctions have been held of the properties concerned and they
are purchased by third parties. In those cases also nothing which is stated
in this judgment will invalidate the purchases. [53-C, D]

11. In respect of cases pending before Courts, the periQd of tWo
months referred to in Section 269 U{l(l) shall be reckoned with reference B
to the date of disposal of each of such pending matters either before this
Court or before the High Courts as the case may be. Where, however, the
. stay orders inhibiting the authorities from taking further proceedings are
vacated, the period referred to in Section 269 UD (1) shall be reckoned
with referred to the date the stay orders are vacated. [54-H; 55-A] C
12. In respect of matters pending at various stages before the
authorities, Form 37-1 shall be deemed to have been filed as on the date
of the main judgment (17.11.1992) for purposes of completion of proceed·
ings in terms of Section 269 UD (1). [55-B, CJ
D
Ed. : (The clarifications contained in paras 11 and 12 above were
issued by this Court in its order dated 27.11..1992 on an application filed
by the Union of India. The said order forms part of the main judgment).

ORIGINAL JURISDICTION : Transferred Case No.26 of 1987.
E
Civil Writ Petition No.2821 of 1986 of the Delhi 'High Court.

Harish N. Salve, Ravinder Narain, Ms. Amrita Mitra, Rajan Narain,
D.N. Mishra, Vibhu Bakhru, Vivek Kohli and P.A.S. Rao (For M/s J.B.D.
& Co.) for the Petitioner.
F
G. Ramaswamy, Attorney General, Dipankar Gupta, Solicitor
General, Dr. Gauri Shankar, Ranbir Chandra, C.V.S. Rao and P. Parmes-
waran for the Respondents.

The Judgment/Order of the Court were delivered by
G
KANIA, CJ. The petitioner herein filed Civil Writ Petition No.2821
of 1989 in the Delhi High Court challenging the validity of the provisions
of Chapter XX-C inserted in the Income Tax Act, 1961 (referred to herein
as 'the Income Tax Act') by the Finance Act of 1986. That writ petition
has been transferred to this Court as a test case. The order transferring H
24 SUPREME COURT REPORTS [1992) SUPP. 3 S.C.R.

A the said Writ Petition was made on 20.9.89.

The relevant facts lie within a narrow compass. The petitioner is the
intending purchaser of a plot of land bearing No. B-7/108A, situated at
Safdarjung Enclave, New Delhi, admeasuring 253 sq. mtrs. The owner of
the property is one Jai Lal s/o Ghazi Ram. The said owner held the said
B plot under a lease executed by the Delhi Development Authority on
25.2.81. On 4.2.85 the o\vner entered into an agreement to transfer the
leasehold rights in the said property to the petitioner and a sum of Rs.4S
lakhs was paid as the advance price. On the same day. an agreement for
the construction of a structure on the plot was entered between the said '
c parties. On 9.7.86 a fresh agreement to sell the residential house put up on
the aforesaid plot of land along with the leasehold rights in the said land
was executed between the parties wherein the owner agreed to transfer to
the petitioner his leasehold rights in the said land along with the ownership
of the construction, namely, the building put up thereon, for Rs.16 lakhs.
In addition, the petitioner was liable under the agreement to pay Rs.3.4
D
lakhs to the Delhi Development Authority on account of the unearned
increase. On the coming into force of Chapter XX- C of the Income Tax
Act, which was brought into effect from 1st October, 1986 by a Notification
dated 7.8.86 in the area with which we are concerned, the said agreement
to sell the said property along with Form No.37-I in duplicate were
.E furnished to the appropriate authority as per the requireffif?t~ Rf ~~ctiQn
269UC of the Income Tax Act. After getting the report of the registered
valuer, the appropriate authority passed an order for the ·purchase by the
Central Government of the said property, namely, the lease hold rights in
the land and the o\vnership of the said building under section 269UD (1)
of the Income Tax Act and served the same on the petitioner in the night
F
of December 15, 1986. No specific reason was given in the said order for
the compulsory purchase of the said property. All that was stated was
"... considering all the relevant facts and for the reasons recorded as re-
quired. It is decided that the said property is fit for purchase by the Central
Government at an equal amount of the apparent consideration ..." The said
G order has been challenged in this petition on various grounds.

As we will presently show, the controversy which remains after
analysing the respectiv.e stands of Mr. Salve, learned counsel for the
petitioner, and learned Attorney General, who appears for the respon-
H de!1ts, is fairly narrow. It is, therefore, not necessary to set out the submis-

\
\
~·
C.B. GAUTAM. v. U.0.1. [KANIA, CJ.) 25

sions of respective counsel in much detail or to cite all the authorities A
referred to by counsel.

In brief, it was submitted by Mr. Salve that the effect of Chapter
XX-C of the Income Tax Act is to confer on the authority concerned,
referred to in the said Chapter as "appropriate authority" powers of com- B
.pulsory purchase of immovable property as a punitive measure where the
said authority takes the view that there was under-valuation of the property
in an agreement for sale with a view to avoid tax. He submitted that the
factors which supported this conclusion were that the order of the ap-
propriate authority for purchase of the property ipso jure operate~ to vest
the property in the Government, and the scope of the vesting is far in C
excess of the right proposed to be transferred. To complete the title of the
Government no further requirement like the execution of a conveyance is
required and the Government is not even required to comply with the
. provisions of the Transfer of Property Act. It was submitted by him that
· on the plain language of Chapter XX-C there was no guideline prescribed D
as to where this drastic power of pre-emptive purchase was to be exercised.
It was submitted by him that in the absence of such guidelines the
_,provisions of Chapter XX-C confer an unfettered discretion on the ap-
- propriate authority under Chapter XX-C to compulsorily purchase immov-
able properties and such a provision conferred unfettered power which was
liable to be exercised arbitrarily and, therefore, violated the provisions of E
Article 14 of the Constitution. It was urged by him that, if a view were taken
that the legislative history of Chapter XX-C shows that the power to
purchase immovable property conferred thereunder was to be exercised
only to counter tax evasion, the provisions were still bad in law as they did
not .comply with the principles of natural justice which are now accepted F
as a requirement for compliance with Article 14 of the Constitution. There
is no provision in Chapter XX-C for any opportunity being given to the
intending purchaser or intending vendor of the immovable property con-
cerned to show cause against the compulsory purchase of the property.
There is no provision even for given them a notice of the intention of the G
appropriate authority to order purchase of the property. The mere require-
ment of recording, reasons is not sufficient in the absence of any require-
ment that they must be set out in the order of purchase or communicated
to the transferor or the transferee. It was further submitted by him that the
provisions of the said Chapter were unconstitutional on account of their
failure to provide for the mode of valuation of property taking into account H
26 SUPREME COURT REPORTS (1992) SUPP. 3 S.C.R.

A the requisite factors for adjustment of the value as where the title of the
property is disputed or the sale is a part of the resolution of some dispute
between the transferor and transferee or where there is an adjustment in
the price on account of tenancy rights vested in the transferee or on
account of encumbrance£ and so on. It was urged by him that the want of
these provisions made the legislation totally unreasonable and this lacuna
B eould not be cured bY. framing rules. It was further submitted by him that
a law providing for the acquisition or compulsory purchase of immovable
property, even in the absence of any proof of tax evasion would violate the
provisions of Article 14 and Article 19{1)(g) of the Constitution as being
excessive and unreasonable.
c
It was further urged by. Mr.--Salve that the provisions of the said
Chapter were bad in law as there was no appeal or revision provided
against orders made by appropriate authorities for compulsory purchase
of immovable properties which orders had serious civil consequences and
D cast an asper~ion on the parties of attempted tax evasion. It was submitted
- that this was all the more so in view of the other factors pointed by him,
Mmely, that .the appropriate auth9rities are not required to give any show
cause notice to the parties . concerned before an order for compulsory
purchase is made, and are not required to supply any reasons to the parties
, concerned whiCh led the appropriate authorities to the conclusion that
.E there was an intended tax evasion in the agreement to sell the immovable
property concerned. It was submitted by hini that the provisions of the said
Chapter are clearly arbitrary, excessive and they infringe the provisions of
Article 14 ·of the Constitution in so far as under the provisions when an
order for compulsory purchase the rights of leaseholders, monthly tenants
F and mortgagees and other encumbrance holders are destroyed without a~y
adequate provision for compensation to them. The mere provision that
such encumbrance holders and the holders of the leasehold rights on the
premises could claim a share in .the compensation awarded to the owner
is no substit.ute for their secured rights in the immovable property con-
cerned.
G
It was, on the other had, submitted by learned Attorney. General that
the history leading to. the enactments of Chapter XX-C and the circumstan-
~s under which Chapter XX-C was introduced have been elaborately dealt
with in paragraphs 7 and 8 of the main counter affidavit. A perusal of
H paragraphs .7 and 8 of the counter affidavit shows that the main reason
C.B. GAUTAM. v. U.0.1. [KANIA, CJ.] 27

behind the introduction of this Chapter "in the Income Tax Act was the A
desire to curb the large scale evasion of income-tax and to counter other
modes of tax evasion adopted by various assessees to deprive the Govern-
ment of its legitimate tax dues. It was felt that a lot of tax evasion was
involved in transfers of immovable properties in urban areas. Refer,ence is
made in the affidavit to the recommendations of Direct Taxes Inquiry B
Committee chaired by the Hon'ble Mr. Justice Wanchoo, retired Chief
Justice of India and known as the Wanchoo Committee. In its interim
report in 1970 the Wanchoo Committee took the view that understatement
of prices in the sale deeds of the immovable properties was a widespread
method of tax evasion and recommended, by way of a drastic remedy, that · C
the Government should empower itself to acquire property where the
consideration was found to be understated in the sale deeds. It was in
pursuance of this recommendation that the provisions of Chapter XX-A
were introduced in the Income Tax Act. However, provisions of that
Chapter were found inadequate for dealing with the evil of under-valuation· D
of immovable properties in sale deeds and agreements to sell with a view
to evade tax and certain difficulties emerged in the effective enforcement
of the provisions of Chapter XX-A. It was in these circumstances that
Chapter XX-C was introduced into the Income Tax Act. It may be men-
tioned here that the provisions of Chapter XX-A ceased to operate in E
respect of transfers of immovable properties made after September 30,
1986 and as from October 1, 1986 the provisions of Chapter XX·C came
into force. It was submitted by learned Attorney General that the very
reason which led to the incorporation of that Chapter in the Income Tax
Act, namely, to counter the evil of tax evasion by under-valuation of
immovable properties in agreements to sell and sale deeds, itself furnishes F
adequate guidelines for the exercise of the power conferred under that
Chapter. It was contended by him that the provisions of that chapter are
not penal in nature as, in so far as the transferor of the immovable property
is concerned, no right of his was seriously prejudiced by an order of
""'' purchase under Section 269 UD, as he would get the consideration for G
which he had agreed to sell the property under the agreement to sell and

-
cases where the price might have been lowered for bona fide reasons like
sales to close relatives were specifically provided for in this Section itself.
It should not matter to the transferor whether he got his price from the
Government or from the purchaser. It was submitted by him that as far as H
28 SUPREME COURT REPORTS [1992] SUPP. 3 S.C.R.

A the transferee is concerned, he could not be said to have any legal interest
in the property agreed to be purchased by him because all that he would:,
have in his favour is an agreement to purchase and such an agreement by
itself creates no interest in property under the provisions of the Transfer
of Property Act. After the deletion of Article 19{f) of the Constitution an
B intending purchaser could not be said to have any fundamental right to
acquire any immovable property. It was submitted that although a trans~
feree might be a person aggrieved for the purposes of Article 226 of the
Constitution he could not have any serious grievance on the ground of
violation of principles of natural justice as he could always challenge the
C order of purchase as arbitrary by filing a petition in a court of law and on
such a petition authorities would have to disclose the reasons to satisfy the
court that they had acted on relevant considerations germane to the object_
of Chapter XX-C in taking the decision to purchase the property. Learned
Attorney General agreed and, in fact, supported the view that the order
for purchase passed by the authorities must have some nexus to the tax
D evasion and it was, in fact, sub~itted by him that every order passed for
purchase under Section 269UD could be tested on the touch-stone of its
having a rational nexus with an attempt at tax evasion. He urged that the
decision to purchase the property is required to be taken by three high
officers who have adequate knowledge in the matter and hence the lack of
provision in the Chapter for any appellate or revisional powers made no
difference. It was submitted that a requirement for the communication of
reasons was not necessary. Chapter XX-C did not provide for such com-
munication and the fact that recording of reasons was required and that
the aggrieved parties could get the reasons by filing a writ petition were
F adequate to meet the requirements of Article 14. As far as tenants and
mortgagees are concerned, it was pointed out by him that although the
property, on purchase under the provisions of Section 269UD, would be
.vested in th,e Government free from all encumbrances yet it must be kept
in mind that similar provisions were upheld in cases for compulsory ac-
3 quisition of property. It was faintly urged by him that compulsory or
pre-emptive_ purchase .of property must be treated on the same footing as
acquisition of property. It was further submitted by him that even if a view
were taken' that Chapter XX-C did not provide for compulsory acquisition
of immovable property but for pre-emptive purchase of the same yet the
-I provisions could be read down in such a way that encumbrances on the
C.B. GAUTAM. v. U.0.1. [KANIA, CJ.] 29

property in question and long term leases thereon which created interests A
1t1 favour of· parties who might have nothing to do with the tax evasion
attempted in the intended sale of the immovable property would not be
affected by the acquisition. It was urged that if the case was regarded as
one of compulsory or pre-emptive purchase all that was purchased was
what was sought to be sold under the agreement to sell and hence, unless B
the agreement provided for the sale of the property free from encumbran-
ces or leasehold rights, such encumbrances or leasehold rights in the
· property would not be affected. As far as monthly tenancies were con-
cerned, it was submitted by him that these tenancies created no interest in
the properties and hence the monthly tenants were not entitled to challenge C
the order for compulsory purchase under Section 269UD on the ground
that the purchase by the Government of the property would bring such
tenancies to an end. He lastly contended that there was no justification for
the claim that any interest should be paid by the Government on the
amount of consideration when an order for purchase was made in favour
of the Government because the property vested in the Government only D
on possession being taken and the right to possession was more valuable
than a right to claim interest. ·

Before discussing the merits of the respective arguments of counsel, we
may point out that after arguments were advanced for some time the learned E
Attorney General made it clear that he did not press his contention that no
r~asons were required to be supplied to the affected parties when an order for
compulsory purchase was made. He did not seriously contest the position that
the parties aggrieved by a proposed order of purchase were entitled to have an
adequate opportunity to show cause against the order of purchase by the
Central Government being made by the appropriate authority in exer~ise of F
the powers conferred under Section 269 VD of the Income-Tax Act. It was,
however, clarified by him that the inquiry which would have to be made to
determine the objections raised by the aggrieved parties would necessarily
have to be somewhat summary because of the limited time fr~me within which
the decision whether to purchase the immovable property in question or not G
.. had to be taken by the appropriate authority. In view of this fair stand taken by
the Attorney General, the controversy has become somewhat narrow as we
have pointed out earlier.

Before considering the respective arguments of learned counsel, it H
30 SUPREME COURT REPORTS [1992] SUPP. 3 S.C.R.

A would not be out of place to take note of the relevant provisions of the said
Chapter.

Section 269UA of Chapter XX-C is the defining section. An agree-
-'
ment to transfer is defined as an agreement, whether registered under the
Indian ~egistration Act, 1908 or not, to transfer an immovable property.
B Sub-section (b) of the said section gives the definition of the term "apparent
consideration". The relevant portion of the said sub-section is as follows:

"(b) 'apparent consideration'-

(1) in relation to any immovable property in respect of
c which an· agreement for transfer is made, being immovable
property of the nature referred to .in sub-clause (i) of
clause (d), means, -

(i) if the immovable property is to be transferred by way
D of sale, the consideration for such. transfer as specified
in the agreement for transfer:

(ii) if the immovable property is to be transferred by way
o( exchange,-

E (A) in a case where the consideration for the transfer
consists of a thing or. things only, the price that such
thing or things ·would ordinarily fetch on sale in the
open market on the date on which the agreement for
transfer is made;

F (B) in a case where the consideration for the tran,sfer
consists of a thing or things and a sum of money, the
aggregate of the price that such thing or things would
ordinarily fetch on sale in the' open tnarket on the date
on which the agreement for transfer is made, and such
0 sum;

(iii) if the immovable property is to be transferred by way
of lease,-

(A} in a case where the consideration for the transfer
H ·consists of
premium only, the amount of premium as
C.B. GAUTAM. v. U.0.1. [KANIA, CJ.] 31

specified in the agreement for transfer; A
(B) in a case where the consideration for the transfer
consists of rent only, the aggregate of the moneys (if
any) payable by way of rent and the amounts for the
service or things forming part of or constituting the
rent, as specified in the agreement for transfer; B

(C) in a case where the consideration for the transfer
consists of premium and rent, the aggregate of the
amount of the premium, the moneys (if any) payable
by way of rent and the amounts for the service or things
C·
forming part of or constituting the rent, as, specified in
the agreement for transfer,

and where the whole or any part of the consideration for
such transfer is payable on any date or dates falling after
the date of such agreement for transfer, the value of the D
consideration payable after such date shall be deemed to
be the discounted value of such consideration, as on the
date of such agreement for transfer, determined by adopt-
ing such rate of interest as may be prescribed in this
behalf;"
E
"Appropriate authority" is defined under sub-settion (c) of Section
269UA as the authority constituted under section 269UB to perform the
functions of an appropriate authority under Chapter XX-C. The relevant
portion of the definition of the term "immovable property" reads as follows:

• "( d) 'immovable property' means -

(i) any land or any building or part of a building, and
F

includes, where any land or any building or part of a·
building is to be transferred together with any
machinery, plant, furniture, fittings or other things,
G
such machinery, plant, furniture, fittings or other
things also.

Explanation: For the purposes of this sub-clause, 'land,
building, part of a building, machinery, plant, furniture,
fittings and other things' include any rights therein." H
32 SUPREME COURT REPORTS [1992] SUPP. 3 S.C.R.

A "Person interested" is defined as follows:

"(e) 'person interested' in relation to any immovable
property, includes all persons claiming, or entitled to
claim, an interest in the consideration payable on account
of the vesting of that property in the Central Government
B under this Chapter"

The term "transfer" has been defined very widely in sub-section (t)
so as to include within its ambit transfer by way of sale or exchange or lease
for a terms of not less than 12 years, Sub-section (2) of Section 269UB
which deals with the Constitution of appropriate authorities- reads as
c follows:-

"269 VB (2): An appropriate authority shall consist of
three persons, two of whom shall be members of the
Indian Income-tax Service, Group A, holding the post of
D Commissioner of Income-tax or any equivalent or higher
post, and one shall be a member of the Central Engineer-
' ing Service, Group A, holding the post of Chief Engineer
or any equivalent or higher post."

Section 269UC prescribes restrictions on transfer of immovable
E property. In brief it provides that no transfer of any immovable property
of a value exceeding Rs. five lakhs or such other amount as may be
prescribed shall be effected except after an agreement for transfer is
entered into- between the person who intends transferring the immovable
property and the person to whom it is proposed to be transferred at least
F three months before the intended date of transfer. Si.lb-section (2) of this
section provides that such an agreement as aforestated must be reduced to
writing in the form of a statement and sub-section (3) provides that this
statement must be in a prescribed form. Rule 48L of the Income-tax Rules,
1962 deals with the statement to be furnished under Section 269UC (3)
and sub-Rule 2 of Rule 48L provides that the statement in Form 37-1 shall
G be furnished in duplicate to the appropriate authority. The sub-clauses of
sub-Rule (2) of Rule 48L deal with the time limits within which the
statement under Section 269UC (3) must be furnished. The relevant por-
tion of Section 269UD which deals with orders of appropriate authority for
purchase of immovable property by the Central Government runs as fol-
H lows:
C.B. GAUTAM. v. U.0.1. [KANIA, CJ.] 33

"269UD(l) The appropriate authority, after the receipt of A
,.. the statement under sub-section (3) of section 269UC in
respect of any immovable property, may, notwithstanding
anything contained in any other law or any instrument or·
any agreement for the time being in force, and for reasons
to be recorded in writing, make an order for the purchase
by the Ce.ntral Government of such immovable property
B
at an amount equal to the amount of apparent considera-
tion:

Provided that no such order shall be made in respect of
any immovable property after the expiration of a period c
of two months from the end of the month in which the
statement referred to in section 269UC in respect of such
property is received by the appropriate authority:

Provided further that in a case where the statement
referred to in section 269UC in respect of the immovable D
property concerned is given to an appropriate authority,
other than the appropriate authority having jurisdiction in
accordance with the provisions of section 269 UB to make
the order referred to in this sub-section in relation to the
immovable property concerned, the period of limitation E
referred to in the preceding proviso shall be reckoned with
reference to the date of receipt of the statement by the
appropriate authority having jurisdiction to make the
order under this sub-section.

(2) The appropriate authority shall cause a copy of its F
order under sub-section (1) in respect of any immovable
property to be served on the transferor, the person in
occupation of the immovable property if the transferor is
not in occupation thereof, the transferee, and on every
other person whom the appropriate authority knows to be G
interested in the property."

Section 269UE deals with the vesting of properties. The relevant
portion of the said section runs as follows:

"269UE (1) Where an order under sub-section _(1) of H
34 SUPREME COURT REPORTS (1992) SUPP. 3 S.C.R.

A Section .269UD is made by the appropriate authority in
respect of an immovable property referred to in sub-
clause (i) of clause (d) of section 269UA, such propertY
shall, on the date of such order, vest in the Central
Government free from all encumbrances.

(2) The transferor or any other person who may be in
possession of the immovable property in respect of which
an order under sub-section (1) of section 269UD is made,
shall surrender or deliver possession thereof to the ap-
propriate authority or any other person duly authorized
by the appropriate authority in this behalf within fifteen
days of the service of such order on him."

(3) x x x x x x x x x

(4) x x x x x x x x x
D
(5) For the removal of doubts, it is hereby declared that
nothing in this section shall operate to discharge the
transferor .or any other person (not being the Central
Government) from liability in respect of any encumbran-
ces on the ·property and, notwithstanding anything con-
E tained in any other law for the time beirig in force, such
liability may be enforced against the transferor or such
other person.

(6) Where an order under sub-section (1) of section
269UD ·is made in ~espect of an immovable property,
F being rights of the nature referred to in sub-clause (ii) of
clause (d) of section 269UA, such order shall have the
effect of -

(a) vesting such right in the Central Government; and
G
(b) placing the Central Government in the.same position
in relation to such rights as the person in whom such a
right would have continued to vest if such order had not
been made."

H Sub-section (1) of Section 269UF runs as follows:

l
C.B. GAUTAM. v. U.0.1. (KANIA, CT.) 35

"269UF.(1) Where an order for the purchase of any im- A
movable property by the Central Government is made
under sub-section (1) of section 269UD, the Central
Go-vernment .shall pay, by way of consideration for such
purchase, an amount equal to the amount of the apparent
consideration."
B
Section 269UH deals with re-vesting of property in the transferor on
failure of payment or deposit of consideration by the Central Government.
It reads as follows:

"269UH. (1) If the Central Government fails to tender C
under sub-section (1) of section 269UG or deposit under
sub- section (2) or sub-section (3) of the said section, the
whole or any part of the amount of consideration required
to be tendered or deposited thereunder within the period
specified therein in respect of any immovable property
which has vested in the Central Government under sub- D
section (1) or, as the case may be, sub-section (6) of
section 269UE, the order to purchase the immovable
property by the Central Government made under sub-sec-
tion (1) of section 269UD shall stand abrogated and the
immovable property shall stand re-vested in the transferor E
after the expiry of the aforesaid period."

There is a proviso to· this sub-section which is n·ot material for the
purposes of this judgment.

Section 269UK imposes restrictions on revocation or alteration of F
certain agreemen~s for the transfer of immovable property or on transfer
of certain immovable property. Sections 269UM, 269UN and 269UO pro-
vide as under:-

"269UM. Notwithstanding anything contained in any other
law or in any instrument or any agreement for the time G
being in force, when an order for the purchase of any
immovable property by the Central Government is made
under this Chapter, no claim by the transferee shall lie
against the transferor by reason of such transfer being not
in accordance with the agreement for the transfer of the H
36 SUPREME COURT REPORTS [1992] SUPP. 3 S.C.R.

A immovable .property entered into between the transferor
and transferee:
~,

·Provided
. that
.
~
nothing
. . contained in this section shall apply.
·if the order for the purchase of the immovable property
~y the Central Government is abrogated under sub-sec-
B tion (1) of section 269UH."

269UN. Save as otherwise provided i~ this Chapter, any
order made under sub-section (1) of section 269UD or
any order made under sub-section (2) of section 269UF
c shall be final and conclusive and shall not be called in
question, in any proceeding under this Act or under any
other law for the time being in force."

"269UO. The provisions of this Chapter shall not apply to
or iri relation to any immovable property where the agree-
D ment for transfer of such property is made by a person to
his relati~e on accow1t of natural love and affection, if a
recital to that effect is made in the agreement for transfer."

We shall first discuss the question whether the provisions of Chapter
XX-C confer ~·unfettered discretion on the appropriate authorities con-
E cerned to acquire immovable properties which are agreed to be sold in the
areas to which the provisions of the Chapter are applicable. In this regard,
as we have already pointed out, the very historical setting in which the
provisions of this Chapter were enacted suggests that it was intended to be
resorted to only in . cases· where there is an attempt at tax evasion by
F significant under-valuation of immovable property agreed to be· sold. This
conclusion is strengthened by Jnstruction No.1A88 issued by the Central
Board of Direct Taxes of the Government of India, Ministry of Finance,
Department of·Revenue, which was filed in the Court by learned Attorney
General. In the said document it is emphasised by the Central Board that
G the main objective of the provisions of Chapter XX-C is to check prolifera-
tion of black money in real estate transactions and to enforce declaration •
c~ the true· value of immovable properties that are subject of transfer
between the parties. The Central Board has pointed out in the said
Instructions that, in administering the provisions of the said Chapter, it has
to be ensured · that no harassment is caused to bona fide and honest
H purchasers or sellers of immovable property and there is no erosion of the
C.B. GAUTAM. v. U.O.I. (KANIA, CJ.] 37

confidence of the public in the sense of justice and fair play of the Income A
Tax Department. Paragraph 3 of the Instruction makes it clear that the
right of pre-emptive purchase has to be exercised by the appropriate
authority only when it has good reason for acquiring the property. When
the property purchased by the Central Go_yernment by an order of an
appropriate authority is put up for sale the reserve price is required to be
fixed at a minimum of 15%above the purchase price-shown as the apparent B
consideration under the agreement between the parties. Thus it is pointed
out by the Board that the right of pre-emptive purchase has to be exercised
only if the fair market value is found to be at least 15% more than the
apparent consideration. The Instruction furth6r provides that in coming to
a conclusion as aforestated a reasonable margin of probable errors in C
estimation needs to be kept in view particularly as the law does not provide
for any opportunity of being heard. The contents of the affidavit filed by
one H.K. Sarangi, Under Secretary, Central Board of Direct Taxes,
Department of Revenue is also to the effect "that the provisions of the said
Chapter ought to be resorted to only in cases of undervaluation of immov-
able properties in agreements of sale to the extent of 15% or more. The D
said H.K. Sarangi has further pointed out that right from the time when
the pro".isions of the said Chapter were brought into force, they are being
applied in such manner that the rights and interests of third parties
unconnected with the tax evasion are not affected. This has also been
pointed out in the main counter affidavit of the Union of India, referred E
to by us earlier, in paragraph 40. The said affidavit points out that where
an order is made under sub-section (1) of Section 269UD for the purchase
by the Central Government of any immovable property, there is no com-
pulsory acquisition involved and hence no solatium is payable and that what
the Chapter provides for is pre-emptive purchase of a property already
offered for sale. It has been set out in the said affidavit that only prop6rties F
with an apparent consideration above Rs.10 lakhs are at present covered
by the scheme which applies to only certain large metropolitan con-
glomeration. Transfers to a relative, on account of natural love and affec-
tion, are excluded from the provisions of the scheme. The appropriate
authority consists of two Commissioners of Income Tax and one Chief G
Engineer from the Central Engineering Service. The said affidavit repeats
that the pre-emptive purchase has to be resorted to only if the fair market
value of the property concerned is found to be at least 15% more than the
apparent consideration and this limit has not to be mechanically applied
but a reasonable margin for probable error taken into account. The af- H
38 SUPREME COURT REPORTS (1992) SUPP. 3 S.C.R.

A fidavit of Hemant Sarangi further states that the following types of proper-
ties should. not ordinarily be purchased:

(a) bases of doubtful or disputed titles;

(b) transactions by and .·with Government, semi-Government Or-
B ganisations, Public Sector Undertakings, Universities·etc.:

( c) properties with bona fide tenancies oflong standing; and

( d) p~operties with too many restrictions. on user.

c It is clarified in the affidavit (para 14) that, although the appropriate
authorities will not normally purchase buildings which are leased, in a few
cases they may do so when it is felt that even taking into account that the
property was encumbered with .lease the apparent consideration was gross-
ly understated. The .affidavit of Sarangi states that the practice uniformly
O followed in compulsory purchase of immovable properties under the
provisions of Chapter XX-C is as set. out earlier. Statements annexed to
the affidavit of H.K. Sarangi show that the several properties which were
purchased under the provision" of Chapter X.X-C have brought mu~h
higher a~ounts tha~ the purchase price when sold at public auctions which
wou.ld clearly suggest that the in the relevant agreements for sale the
E apparent consideration was significantly understated.

The legislative history of Chapter XX-C, the stand taken by the
Vriion .of India and the Central Board of Direct Taxes as shown iri the main
counter affidavit and the affidavit of H.K. Sarangi, which has been filed
F after obtaini~g instructions from the Income Tax Department and the
Central Board of Direct Taxes makes it clear that the powers of compul- .
. sory pur~hase conferred under the provisions of Chapter XX-C of the
Income-Tax ·Act are being used and intended to be used only _in cases
where in an agreement to. sell an immovable property in an urbari area to
which the provisions ·of the said Chapter apply, there is a significant
G undervaluation of the property concerned, namely, of 15 per cent or more.
If the appro1Jriate authority concerned is satisfied that in an agreement to
sell immovable property in such areas as set out earlier, the apparent
consideration shown in the agreement for sale is less than the fair market
.~alu~ by ·15 per cent or more it may draw a presumption that this under-
H valuation has been done with a view to evade tax. Of course, such a
C.B. GAUTAM. v. U.O.I. (KANIA, CJ.] 39

presumption is rebuttable and the intended seller or purchaser cau lead A
evidence to rebut such a presumption. Moreoyer, an order for compulsory
purchase of immovable property under the provisions of Section 269UD
requires to be supported by reasons in writing anci such reasons must be
germane to the object for which Chapter XX-C was introduced in the
Income Tax Act, namely, to counter attempts to evade tax.
B
The conclusion that the provisions of Chapter XX-C are to be
resorted to only where there is significant undervaluation of the immovable
property to be sold in the agreement of sale with a view to evading tax finds
support from the decision of this Court in the case of KP. Varghese v.
Income-Tax Officer, Emakulam & Anr., (1981) 131 l.T.R. 597. Section 52 C
in the Income-Tax Act, 1961, which has now been deleted, came up for
consideration before a Bench comprising two learned Judges of this Court.
Very briefly put that section provided that where a person acquired a
capital asset from an assessee connected with him and the Income-Tax
Officer had reason to believe that the transfer was effected with a view to D
avoid or reduce the liability of the assessee under Section 45 to the tax on
capital gains and with that object that the transfer of the capital asset was
being made at an under-value of not less than 15%, for the purposes of
taxing the assessee, the full value of the consideration was taken to be its
fair market value on the date of the transfer. It was pointed out by the
Bench that sub-section (1) of Section 52 did not deal ~th income to accrue E
or to be received, which in fact was never accrued and was never received.
It sought to bring within the net of taxation only that income which has
. accrue or is received by the assessee as a result of the transfer of the
~pita! ~sset and since it would not be possible for the Income-Tax Officer
1

to determine possibly how much more consideration is received by the F
assessee than that declared by him, sub-section (1) provides that the fair
market value of the property as on the date of transfer shall be taken to
be the full value of the consideration which has accrued or has been
received by the assessee. The onus of establishing that the conditions of
taxability are fulfilled is always on the revenue. In that case it was urged
on behalf of the revenue that under the provisions of Section 52(2) once G
the. Income-Tax Officer is satisfied that the condition of the consideration
declared by the assessee in respect of the transfer is less by 15% or more
than the fair market value, the capital gains can be computed on the footing
that the fair market value was the consideration received by the assessee.
This submission was rejected by this Court. It w;:i<: n"~nted out that the H
40 SUPREME COURT REPORTS [1992) SUPP. 3 S.C.R.

A submission wouJd be justified only on a strict literal reading of sub-section ·
(2) of Section 52 but that such a construction could not be adopted. The
· Court observed that the task of interpretation of a statutory enactment is
not a mechanical task. The famous words of Judge Learned Hand of the
United States of America that ".... it is true that the words used, even in
their literal sense, are the primary and ordinarily the most reliable source
B
of intei;-preting the meaning of any writing: be it a statute, a contrac:t or
anything else. But it is one of the surest indexes of a mature and developed
jurisprudence not to make a fortress out of the dictionary; but to remember
that statutes always have some purpose or object to accomplish, whose
sympathetic and imaginative discovery is the surest guide to their meaning"
c were quoted with approval. After considering various authorities and the
historical setting in which the provisions of the said Section were enacted,
it was held that the fair and reasonable construction to put on the
provisions of sub-section (2) of Section 52 would be to so constru~ it that
it would apply only when the consideration for the transfer is under-stated
~r, in other words, only where the assessee has actually received a larger
n . consideration for the transfer than that what is declared in the instrument
of transfer and it could have no application in the case of a bona fide
transaction where. the full value of the consideration for the transfer is
correctly declared by the assessee (See page 606 of the Report).

E We may point out that although it was submitted by the learned
Attorney General that the decision in the case of K.P. Varghese (supra)
requires reconsideration, he did not seriously challenge the correctness of
that decision. No argument has been advanced by him which could lead us
to the conclusion that the said case was not correctly decided nor has he
F pointed out any error in the judgment in that case.
i.,

In. Commissioner of Income-tax, Gujarat-II v. Smt. Vimlaben Bltag-
wandas Patel & A1ir., '(1979) 118 I.T.R. 134, a Division Bench of the Gujarat
High Court took the view that the entire scheme as conceived and incor-
porated in Chapter XX-A of the Income-tax Act, 1961, postulates a basic
G premise that the under-statefuent of consideration in an instrument of
transfer of sale is untruly made if it f;ills short of the fair market value by
15% and the u.lterior motive should be presumed to be concealment of
income or tax evasion unless rebutted by the parties to the transfer.
Parliament has provided artificial rules of evidence so as to raise the
H presumption about the guilt of the parties to the transfer in respect of the
C.B. GAUTAM. v. U.0.1. [KANIA, CJ.] 41

offence of tax evasion of concealment. It has been pointed out that, before A
resorting to the provisions of the said Chapter, the competent, authority
must have reason to believe that. the fair market value of the property of
more than Rs.25,000 exceeds the apparent consideration stated in the
instrument of transfer and the parties have agreed to make the untrue
statement with the ulterior motive of tax evasion or concealment of income. B
The satisfaction of the .competent authority for initiation of the acquisition
proceedings is a subjective satisfaction of the objective facts set out above.
The reason for formation of belief must have a rational and direct connec-
tion with the material coming to the notice of the competent authority,
though the question of sufficiency or adequacy of the material is not open
to judicial review. C

In these circumstances, in our opinion, it cannot be said that the
provisions of the said Chapter confer an unfettered discretion on the
appropriate authorities to order the purchase by the Central Government
of immovable properties agreed to be sold and hence they cannot be D
regarded as conferring arbitrary or unfettered discretion on the ap-
propriate authorities. The challenge to the provisions of the said Chapter
as being violative of Article 14 of the Constitution must, therefore, fail.

The next question to which we propose to address ourselves is E
whether the provisions of Chapter XX-C are bad in law as there is no
provision for giving the concerned parties an opportunity of being heard
before an order is passed under the provisions of Section 269UD of the
said Chapter for the purchase by the Central Government of an immovable
property agreed to be sold in an agreement of sale. In this regard a. plain
reading of the provisions of the said Chapter clearly shows that they do net F
contain any provision for giving the concerned parties an opportunity to be
heard before an order for compulsory purchase of the property by the
Central Government is made. In connection with the requirement of op-
portunity of being heard before an order for compulsory purchase is made
we find that somewhat similar questions have been considered by this G
0

Court on a number of occasions. In the case of Union of India v. Col. J.N.

-· Sinha & Anr., [1971] 1 SCR 791 at 794-795 the facts were that the first
respondent who was in the class-I service of the Survey of India and rose
to the positicm of Deputy Director was compulsorily retired by an order
under rule 56G) of the Fundamental Rules, no .reasons were given in the H
42 SUPREME COURT REPORTS (1992] SUPP. 3 S.C.R.

A order. Respondent No.1 challenged the order on the ground that it violated
principles of natural justice and no opportunity had been given to the first
respondent .to show cause against his compulsory retirement. A Division
Bench of this Court in its judgment in that case observed as follows:-

"Rules of natural justice are not embodied rules nor can
B they be elevated to the position of fundamental rights. As
observed by this Court in Kraipak and Ors. v. Union of
India, A.LR. 1970 .S.C. 150 'the aim of rules of natural
justice is to secure justice or to put it negatively to prevent
miscarriage of justice. These rules can operate only in
c ar.eas not covered by arty law validly made. In other words
they do no.t supplant the law out supplement it.' it is true
that if a statutory provision can be read consistently with
the principles of natural justice, the courts should do so
because .it must be presumed that the legislatures and the
statutory authorities intend to act in accordance with the
D
. principles of natural justice. But if, on the other hand,· a
statutory provision either specifically or by necessary im-,
plication excludes the application of any or all the prin-
ciples of natural justice then the court cannot ignore the
mandate of the Legislature or the statutory authority and
E read into the concerned provision the:principles of natural
justice. Whether the exercise of a power conferred should
be made in accordance with any of the principles of
natural justice or not depends upon the express words of
the provision conferring the power, the nature of the
F power conferred, the purpose for which it is conferred
and the effect of the exercise of that power."

In the case of Olga Tellis & Ors. v. Bombay Municipal Corporation &
Ors. etc., [1985) Suppl. 2 SCR 51 at 89, a Constitution Bench comprising
five learned Judges of this Court had occasion to deal with the provisions
G of Section 314 of the Bombay Municipal Corporation Act, 1888.

-
Chandrachud, C.J., (as he then was) delivering _the judgment of the Court
held that "the said Section confers on the Commissioner the discretion to
cause an encroachment to be removed with or without notice. That discre-
tion has to be exercised in a reasonable manner so as to- comply with the
H constitutional mandate· that the procedure accompanying the performance
C.B. GAUTAM. v. U.O.l. [KANIA, CJ.] 43

of a public act must be fair and reasonable. The Court must lean in favour A
of this interpretation because this helps sustain the validity of the law."
Chandrachud, C.J., went on to observe as follows:-

"It must further be presumed that, while vesting in the
Commissioner the power to act without notice, the Legis-
lature intended that the power should be exercised spar- B
ingly and in cases of urgency which brook no delay. In all
other cases, no departure from the audi alteram partem
' rule ('Hear the other side') could be presumed to have
been intended. Section 314 is so designed as to exclude
the principles of natural justice by way of exception and c
not as a general rule. There are situations which demand
the exclusion of the rules of natural justice by reason of
diverse factors like time, place the apprehended danger
and so on. The ordinary rule which regulates all procedure
is that persons who are likely to be affected by the
proposed action must be afforded- an opportunity of being
D
heard as to why that action should not be taken. The
hearing may be given individually or collectively, depend-
ing upon the facts of each situation. A departure from this
fundamental rule of natural justice may be presumed to
have been intended by the Legislature only in circumstan- E
ces which warrant it. Such circumstances must be shown
to exist, when so required, the burden being upon those
who affirm their existence."

It must, however, be borne in mind that courts have generally read
F
into the provisions of the rdevant sections a requirement of giving a
reasonable opportunity of being heard before an order is made which
would have adverse civil consequences for the parties affected. This would
be particularly so in a case where the validity of the section would be open
to a serious challenge for want of such an opportunity.
G
It is true that the time frame within which the order for compulsory
purchase has to be made is a fairly tight one but in our view the urgency
is not such as would preclude a reasonable opportunity of being heard or
to show cause being given to the parties likely to be adversely affected by
an order of purchase under Section 269UD(l). The enquiry pursuant to H
44 SUPREME COURT REPORTS [1992] SUPP. 3 S.C.R.

A the explanation given by the intending purchaser or the -intending seller
might be a somewhat limited one or a summary one but we di;:cline to
accept the submission that the time lilll:it provided is so short as to preclude
an enquiry or show cause altogether.

In the light of what we have observed above, we are clearly of the
B
view that the requirement of a reasonable' opportunity being given to the·
concerned parties, particularly, the intending purchaser and the intending
seller mus,t be road into the provisions of Chapter XX-C. in our opinion,
before an order for compulsory purchase is made under Section 269UD,
the intending purchaser and the intending seller must be given a reasonable
c opportunity of showing cause against an order for compuls"ory purchase
being made by the appropriate authority concerned. As we have already
pointed out the provisions of Chapter XX-C can be resorted to only where
there is a significant under-valuation of property to the extent of 15% or
more in the agreement of sale, as evidenced by the apparent consideration
D being the lower than the fair market value by 15% or more. We have
further pointed out that although a presumption of an attempt to evade tax
may be raised by the appropriate authority concerned in case of the
aforesaid circumstances being established, but such a presumption is rebutL
table and this would necessarily imply that the concerned parties must have
an opportunity to show cause as to why such a presumption should not be
E drawn. Moreover, in a given transaction of an agreement to sell there might
be several bona fide considerations which might induce a seller to sell his
immovable property at less than what might be considered to be the fair
market value. For example; he might be in immediate need of money and
unable to wait till a buyer is foun'd who is willing to pay the fair market
value for the property. There might be some dispute as to the title of the ·
immovable property as a result of which it might have to be sold at a price
lower than the fair market value or· a ·subsisting lease in favour of the
intending purchaser. There might similarly be other genuine reasons which
might have led the seller to agree to sell the property to a particular
G purchaser at less than the market value even in cases where the purchaser
might not be his relative., Unless an intending purchaser or intending seller
is given an 'opportunity to show cause against the proposed order for
compulsory purchase, he would· not be in a position to rebut the presump-
tion of tax evasion and to give an interpretation to the provisions which
would_ lead to such a result would be utterly unwarranted. The very fact
H that an imputation of tax evasion arises where an order for compulsory
C.B. GAUTAM. v. U.0.I. [KANIA, CJ.] 45

purchase is made and such an imputation casts a slur on the parties to the A
agreement to sell lead to the conclusion that before such an imputation can
be made against the parties concerned, they must be given an opportunity
to show cause that the under-valuation in the agreement for sale was not
with a view to evade tax. Although Chapter XX-C does not contain any
express provision for the affected parties being given an opportunity to be
heard before a~ order for purchase is made under Section 269UD, not to B
read the requirement of such an opportunity would be to give too literal
and strict an interpretation to the provisions of Chapter XX-C and in the
words of Judge Learned Hand of the United States of America "to make
a fortress out of the dictionary." Again, there is no express provision in
Chapter XX-C barring the giving of a show cause notice or reasonable c
opportunity to show cause nor is there anything in the language of Chapter
XX-C which could lead to such an implication. The observance of prin-
ciples of natural justice is the pragmatic requirement of fair play in action ..
In our view, therefore, the requirement of -an opportunity to show cause
being given before an order for purchase by the Central Government is D
made by an appropriate authority under Section 269 UD must be read into
the provisions of Chapter XX-C. There is nothing in the language of
Section 269UD or any other provision in the said Chapter which would
negate such an opportunity being given. Moreover, if such a requirement
were not read into the provisions of the said Chapter, they would be
seriously open to challenge on the ground of violations of the provisions of E
Article 14 on the ground of non-compliance with principles of natural
justice. The provision that when an order for purchase is made under
Section 269UD -- reasons rnust be recorded in writing is no substitute for
a provision requiring a reasonable opportunity of being heard before such
an order is made.
F
The recording of reasons which lea~ to the passing of the order is
basically intended to serve a two-fold purpose:

(1) that the "party aggrieved" in the proceeding before
acquires knowledge of the reasons and, in a proceeding G
.... before the High Court or the Supreme Court (since there
is no right of appeal or revision), it has an opportunity to
demonstrate that the reasons which persuaded the
authority to pass an order adverse to his interest were
erroneous, irrational or irrelevant, and H
. ,
46 SUPREME COURT REPORTS [1992] SUPP.3S,C.R.

A (2) that the obligation to rec:Ord reasons and convey
the same to the party concerned operates as a deterrent
against possible arbitrary action by the quasi-judicial or
the executive authority invested with judicial powers.

Section 269UD(l), in express terminology, provides that the ap-
B propriate authority may make an ord~r for the purchase of the property
"for reasons to be recorded in writing", Section 269UD(2) casts.an obliga-
tion on the authority that it "shall cause a copy of its order under sub-sec-
tion (1) in respect of any immovable. property to be served on the
transferor". It is, therefore, inconceivable that the order which is required
c to be served by the appropriate authority under sub-section (2) would be
the one which does not contain the reasons for the passing of the order or
is not a·ccompanied by the reasons recorded in writing. It may be pe(mis-
sible to record reasons separately but the order would be an incomplete
order unless either the reasons are incorporated therein or are served
D separately along with the order on the affected party. We are; of the view,
that reasons for the order must be communicated to the affected party.

We may also, in this connection, refer here to the decision of a
Division Bench of the Madras High Court in Government of India and
another v. Maxim A. Lobo and another, (1991) 190 I.T.R. 101 to which one
E of us. (Anand, CJ, Madras High Court, as he then was) was a party where
a somewhat similar view regarding the requirement of compliance with
principles of natural justice in making an order under sub-section (1) of
Section 269UD has been taken. In so far as the decision of the Karnataka
High Court in Vidyavati Kapoor Tntst v. Chief Commissioner of Income -
Tax and others, (1992) 194 I.T.R. .584 takes a contrary view, it does not lay
F
down the correct law.

We now take up the submissions of the learned counsel for the
petitioner that the provisions of the said Chapter are arbitrary and violate
the provisions of the Fundamental Rigbts Chapter insofar as an order for
G compulsory purchase under Section 269UD of the said Chapter has the
effect of vesting the property in the Central Government free from all
encumbrances or leasehold rights the value of which might not be reflected
in the apparent consideration mentioned in the agreement for sale. It was
submitted by him that these encumbrance holders and holders of leasehold
H rights might not have anything to do with the attempt at tax evasion in the
C.B. GAUTAM. v. U.0.1. [KANIA, CL] 47

intended sale, assuming that such an attempt is made by the intending A
seller or the intending purchaser by undervaluing the property concerned
in the agreement for sale and yet they would be deprived of their valuable
rights practically without any. compensation in the event of an order for
compulsory purchase being made. In our view, the submissions of learned
counsel are not without merit. U oder the provisions. of sub-section ( 1) of B
Section 269UD on an order for purchase by the Central Government of a
immovable property, the government would be liable to pay as compensa-
tion to the owner of the property an amount equal to the amount of
apparent consideration. Under the express provisions sub-section (1) of
Section 269UE which we have set out above, in case an order for compul-
c
sory purchase is made under sub-section (1) of Section 269UD, the proper-
ty in respect of which the order is made shall vest in the Central
Government free from all encumbrances. (emphasis supplied)· Sub-section
(2) of Section 269UE provides that the transferor or any other person who
may be in possession of the immovable property in respect of which an D
order under sub-section (1) of Section 269UD ,3 made is required to
surrender or deliver possession of the property to the appropriate authority
or any other person duly authorised by the appropriate authority within 15
days of the service of the order on him. If there is a lessee in occupation
of the property concerned, his leasehold rights would be destroyed and he
would have to handover the possession of the property to the appropriate
E
authority or any other person nominated by the appropriate authority.
Similarly if an encumbrance holder like a usufructuary mortgagee were in
occupation he would loss his valuable right to remain in possession and
enjoy the usufruct. This clearly shows that an order for compulsory pur-
chase result in the riglits of holders of encumbrances and leasehold rights F
being destroyed or significantly diminished. In a given case it might happen
that the property is intended to be sold under an. agreement to sell subject
to encumbrances and leasehold rights, and very often agreements to sell
the immovable property do not provide that the property sold would be
free from encumbrances or leasehold rights. In such a case, the apparent G
consideration, even if it is equivalent to the fair market value, would be
indicative of the market value of the property subject to such encumbran-
ces. If, in such a case an order for compulsory purchase is made, the result
would be that the property would be compulsorily purchased and the
amount to be paid for the purchase would be only equal to the apparent H
48 SUPREME COURT REPORTS [1992] SUPP. 3 S.C.R.

A consideration and this apparent consideration would not take into account
the value of the encumbrances on the property like mortgages and so on
or the leasehold rights. It is well know that a property may be heavily
encumbered and its value can be considerably depressed if it were sold
subject to en.cumbrances. It is equally well known that a property in respect
B of which term is a subsisting lease for a substantial period of time would
fetch a comparatively lo\v. price because the purchase thereof would not
carry with it the right to possession or occupation during the subsistence
of the leasehold interests. In such cases, the amount to apparent considera-
tion could be even less than the value of the encumbrances or the leasehold
interests. An order for compulsory purchase in such cases would necessari-
c ly result in gross injustice to the encumbrance holders and lessees and to
their being deprived of their rights without their being in any way involved
in the attempt at a tax evasion. It, therefore, appears to us difficult to
uphold the last pa.rt of sub-section (1) of Section 269UE insofar as it
provides that the property in respect of which an order under sub-section
D (1) of Section 269UD in made shall vest in the Central Government free of
. all encumbrances. In our opinion the expression "free of all enc~mbrances"
is liable to be struck down as arbitrary, without any rational neXl!S with the
object of the legislation in question and violative of Article 14 of the
Constitution. Similarly the provisions of sub-section (2) of Section 269UE
E set out by us earlier must be read down so as to make them inapplicable
to bona fide lessees in possession or bona fide encumbrance holders in
possession.

Our attention was drawn by learned counsel for the respondent to
F the judgment of a Division Bench of the Gujarat High Court in Rambhai
manja Nayak v, Union of India, (1983) 142 I.T.R. 239. In that case the
provisions of Chapter XX-A of the Income-tax Act came up for considera-
tion before the Gujarat High Court. It was held that the scheme of Chapter
XX-A is essentially to penalise the iax dodgers who seek to evade payment
of tax by resorting to the dubious methods of undervaluation of properties
G under the instruments of transfer. It was held that under the provisions of
the said chapter the property in question vested in the Central Government
free from all encumbrances under the provisions of. sub-section ( 4) of
Section 269 I. The Gujarat High Court took the view that it is only after
all interests -- proprietary ,as well as possessory are extinguished on the
1
H acquisition of the property that the property vests absolutely in the Central
~·
C.B. GAUTAM. v. U.0.1. [KANIA, CJ.] 49

Government free from all encumbrances. In the context "encumbrances" A
must be given the widest possible meaning and would certainly include
leasehold or tenancy rights. It was submitted that the said decision lays
down that although a property may be subject to encumbrances or
leasehold interests it can be compulsorily acquired by the <:;:entral Govern-
ment free from all encumbrances. In our view, the.aforesaid judgment is
clearly distinguishable. The case before the Gu.iarat High .Co.urt was one
B
of compulsory acquisition as Chapter XX-A provided for compulsory
acquisition of immovable· properties in the circumstances set out therein
and that case cannot be compared with the case before us which is one of
compulsory purchase by the Central Government which is in the nature of
a pre-emptive purchase~ In case of pre-·em'ptive purchase of the type before c
us what could be purchased was that whi!:;h was offered for sale and
nothing beyond it.

It was submitted by learned Attorney General that the provisions of
sub-section (1) of Section 269UD might be read down so as to inean that D
the property compulsorily purchased under an order made under Section
269UD(l) would vest in the Central Government subject to bona fide
encumbrances and leasehold interests subsisting thereon other than month-
ly tenancies. It was urged by him that in a pre-emptive purchase normally
what would be purchased is only that which was put up for sale or sold
and, if the same principle was applied to the ·compulsory purchase by the E
Central Government under Section 269UD, the rights of the emcumbrance
holders and the holders of leasehold interests subject to which the property
was agreed to be sold could be protected. We agree that in order to save
a statute or a part thereof from being struck down it can be suitably read
down. But such reading down is not permissible where it is negatived by F
the express language of the statute. Reading down is not permissible in
such a manner as would fly in the face of the express terms of the statutory
provisions. In view of the expi:ess provision in Section 269UE that the
property purchased would vest in the Central Government "free from all
encumbrances" (emphasis supplied) it is not p9ssible to read down t~e. G
section as submitted by learned Attorney General. In the result the .expres-
sion "free from all emcumbrances" in sub-section (1) of Section 269UE is
struck down and sub-section (1) of Section 269UE must be rea4 without
I
the expression "free from all encumbrances" with the result the property in
question would vest in the Central Government subject to such encumbran-
ces and leasehold interests as are subsisting thereon except for such of H
SUPREME COURT REPORTS (1992] S.LJPP. 3 S.C.R.

A them as are agreed to be discharged by the vendor before the sale is
completed. If under the relevant agreement to sell the property is agreed
t~ be sold free of all encumbrances or certain encumbrances.it would vest
in the Central Government free of such encmnbrances. Similarly, sub-sec-
tion (i) of Section 269UE will be read down· so that if the. holder of an
encumbrance. or a lessee is in possession of the property and under the
B agreement to s~ll the property it is not provided that the sale would be free
of such encumbrances or .leasehold interests, the encumbrance holder or
the lessee who is in possession will not be obliged to deliver the possession
of the property to the appropriate authority or any person authorised by it
and the provisions of sub-section (3) also would not apply to such persons.
c If the provisions of Section 269UE are read down in the manner indicatec.I
above then, in our opinion, the provisions of sub-section (6) of that section
do not present any difficulty because the vesting iri the Central Government
would be subject to such encumbrances and leasehold rights as stated
earlier.
D The next controversy posed was regarding the monthly tenancies. As
far as monthly tenancies are concerned, they do not pose any difficulty
because monthly tenants are also lessees in law although their right is a
very limited one. If the agreement to sell does not provide for vacant
possession or the determination of monthly tenancies such tenancies would
E continue even on an order for purchase by the Central Government being
made by Jhe appropriate authority concerned under Section 269UD(l); but
such tenants would lose the protection given to tenants .. under ·the rent
protection laws because such laws a:e not made applicable to prope'rties
owned by the Central .Government with the result that thefr tenancies could
F ,be terminated by the Central Government. The loss of the protection ·of
the rent control acts cannot be regarded as an interest for which any
compensation is liablf'. to be paid.

As we have stated earlier where an agreement for sale provides that
the property is intended to be sold free of all encumbrances or leasehold
G rights, the order for purchase of such property under Section 269UD(l) in
the said Chapter would result in the said property vesting in the Central
Government free of such encumbrances or leasehold interests. In such a
case the holders of the encumbrances and leasehold Interests would have
to obtain their compensation from the amou~t awarded "as the purchase
H price to the owner of the property. This appears to be a fair construction
C.B. GAUTAM. v. U.0.1. [KANIA, CJ.] 51

because in such a case the apparent consideration can be expected to A
include the value of such leasehold interests or encumbrances. The holders
of the emcumbrances and leasehold interests which would be destroyed in
this manner can be said to be persons interested as contemplated in clause
(e) of sub-section (2) of Section 269UA. In this connection, we may refer
to sub-section (5) of Section 269UE which declares that nothing in the said B
section which deals with the vesting of prope~ty in the Central Government
shall operate to discharge the transferor or any other person (not being
the Central Government) from liability in respect of any encumbrances on
the property and notwithstanding anything contained in any other law for
the time being in force, such liability may be enforced against the transferor
or such other person. This provision makes it amply clear that in the case c
we have just referred to, the encumbrance holder or the holder of the
leasehold rights could claim the. fair value of his encumbrance or the
leasehold interest out of the amount paid on account of the purchase price
to the owner of the immovable property acquired by the Central Govern-
ment under Section 269UD.
D
. It was urged by learned counsel for the Revenue that in case a view
is taken that the expression "free from all encumbrances" should be struck
down it would be left open for an intending seller of immovable property
to undervalue the property by creating a bogus lease or a bogus en-
cumbrance thereon and this would defeat the purpose for which the E
Chapter XX-C was introduced. We are unable to agree. If a lease or an
encumbrance is found to be bogus it can be treated as of no legal effect
and in that event it would not affect any of the rights of the Central
Government on the vesting of the property in the event of an order for
purchase being made under Section 269UD(l). If it is so considered F
necessary the provisions of the Chapter might be so amended as to clarify
that if any lease or encumbrance is created with a view lo defeat the
provisions of Chapter XX-C such lease or encumbrance will be regarded
as void or ignored for the purposes of the said Chapter. That, however, is
for the Parliament to consider.
G
. This brings us to the question of relief. We find that the order for
compulsory purchase under Section 269UD(l) of the Income Tax Act
which was served on the petitioner in the night of 15th December, 1986,
has been made without any show cause notice being served on the
petitioner and without the petitioner or other affected parties having been H
52 SUPREME COURT REPORTS [1992) SUPP. 3 S.C.R

A given · ai:iy .opportunity to show cause against an order for compulsory
purchase nor were the re.asons for the said order set out in. the order or
communicated to the petitioner or other concerned parties with the ~rder.
In view of what we have stated earlier .the order is clearly bad in law and
it is set aside. .
··~
B
The next question is as to the consequence to follow. In view of the
fact that the object of the provisions of Chapter XX-C is a laudable object,
namely, to counter ,evasion of tax in transactions of a sale of immovable
property,. we consider it necessary to limit the retrospective operation of
our judgment in such a manner as not to defeat the acquisitions altogether.
c We find that if the original time frame prescribed in Chapter XX-C is
rigidly applied it would not be possible for the appropriate authority
concerned to pass an order under Section 269UD(l) at all in respect of
the. property in question. In order to avoid that situation and, yet to en.sure
that no injustice is caused to the petitioner, we order, in the facts and
D circumstances of the case, that the statement in Form 37-1 submitted by
the petitioner as set out earlier shall be treated as if it were submitted on
the date of the signing of this judgment. Thereafter if the. appropriate
authority considers it fit, it may issue a show cause notice calling upon the
petitioner and other concerned parties to show cause why an order for
compulsory purchase of the property in, question should not be made under
E the provisions of sub-section (1) of Section 269UD and give a reasonable
opportunity to the petitioner and such other concerned parties to show
cause against such an order being made. In view of the limited time-frame
this will have. to be done with a sense oft1~gency. If after such an oppor-
tunity is give1.1 the appropriate authority so considers it fit, it may hold an
F inquiry, even. though summary in nature, and may pass an order for
compulsory purchase by the Central Government of the property in ques-
tion under Section 269UD(l). The appropriate authority will have to
decide whether an inquiry is called for in the facts and circumstances of ,
the case after the show cause notice is issued. We are fortified in giving a
somewhat limited retrospective operation of our judgment in view .of the
G decision by a Constitution Bench comprising five learned Judges of this
Court in India Cement Ltd. v. State of Tamil Nadu, [1990) 1 SCC 12. In
·that case inspite of Section )55· of the Madras Panchayais' Act being
declared ult!a vires, the State of Tamil Nadu. was held not liable to refund
to the petitioners the cess co,lected by it under the provisions of the said
H section.
C.B. GAUTAM. v. U.O.l. [KANIA, CJ.] 53

We realise that if order for compulsory purchase of the property is A
made her(fafter the intending vendor will suffer to some extent by reason
of the fact that he will get the purchase amount several years after the time
he would have got it had the impugned order been held to be valid. But
on the other hand, however, he would have retained the possession of the
property in question. Taking into account these factors and taking note of B
the fact that the immovable prop~rties in urban areas have gone up steeply
in value during the last few years, we direct that in case an order for
compulsory purchase is made the Central Government shall pay to the
intending seller the amount of the apparent consideration plus interest at
9 per cent per annum from the date the impugned order was made.
c
We may clarify that as far as completed transactions are concerned,
namely, where after the order for compulsory purchase under Section
269UD of the Income Tax Act was made and possession has been taken
over, compensation paid to the owner of the ·property and accepted without
protest, we see no reason to upset those transactions and hence, nothing
we have said in the judgment will invalidate such purchases. The same will D
be the position where public auctions have been held of the properties
concerned and they are purchased by third parties. In those cases also
nothing which we have stated in the judgment will invalidate the pur~hases.

In the result, the writ petition transferred is allowed to the extent E
aforestated. Considering the facts and circumstances of the case there will
be no order as to costs.

ORDER

Union of India has moved this application for certain clarifications· F
and directions with a view to obviating certain difficulties that it envisages
in applying the principles laid down in the main judgment dated 17.11.1992
by the Constitution Bench to cases other than the case of the ·particular
petitioner in that case. We have heard learned Solicitor General in support
of this application.
G
2. Our attention was drawn to two aspects: one in relation to the
large number of similar petitions yet pending before this Court and the
various High Courts where, in view of the subsisting orders of stay operat-
ing therein, it would not be possible immediately to take steps and imple-
ment the directions contained in the judgment within the time frame H
54 SUPREME COL'RT REPORTS [1992) SUPP. 3 S.C.R.

A stipula~(fd therein. The second aspect relates to pending matters before the
authoriti~s, 'Vh_ich, though not pending before courts, do not also admit of
applic~ti'on o( ~he· principles consistent with the statutory limit. After
hearfng the leari:ed Solicit~r General, we are satisfied that the problems
and qi~ficulties envisaged, in practical terms, are real. and require to be
provided for.
B
. 3. T,he firs~ aspect arises out of the limited retrospectivity imported
by the jtidgm~nt. The judgment provides that:

"in b~der to avoid that situation and, yet to ensure that no
injustice is caused to the petitioner, we order, in the facts
and circumstances of the case, that the statement in Form
. 37-I ~itbmitted by the petitioner as set out earlier shall be
treated as if it were submitted on the date of signing of
·this judgment." .

D · · Learned S~licitor General points out that in the cases where petitions
are yet pending in this Court as well as in the various High Courts, the
above direction becomes unworkable inasmuch as the interim orders sub-
sisting in those petitions disable the authorities to carry'out the directions
contained in the judgment within the stipulated time-frame and that,
E therefore, the directions as given in the judgment become impossible of
implementation. Learned Solicitor General suggests that, in order that the
principles laid down in the judgment become workable in all other pending .
cases before the courts, a clarification be made to the effect that in respect
of all such cases pending before this Court' and the various High Courts,
the time frame for affording of opportunity of being heard shall be reck-
F. o~ed from the date of the a.ct'ual disposal of those matters by this.Court or
the High Court, as the case may- be.
. .

We think that this .clarification in the form of a further direction is
'

necessary for a proper imp!ementation of the principles laid down in the
G judgment.

We, accordingly, clarify by this supplemental direction to be read as
part of the judgment that in respect of cases other th~n that of petitioner
- C.B. Gaµtam, the period of two months referred to in Section 269UD(l)
shall be_ reckoned. with reference to the date of disposal of each of such
H pending matters either before this Court or before the High ca'urts as the.
C.B. GAUTAM. v. U.0.1. 55

case may be. Where, however, the stay orders inhibiting the. authorities A
from taking further proceedings are vacated, th~ period referred to in the
said Section 269UD(l) shall be reckoned with reference to the date of such
vacating of the stay orders. This clarification and further direction shall be
supplemental to and be treated as parts of the main judgment.

4. The second clarification sought is in respect of matters pending
before the authorities ·and which though not agitated in courts of law, are
pending at various stages before the authorities in all such cases. We direct
that Form 37-1 shall be deemed to have been filed as on the date of the
judgment of this Court dated 17th November, 1992 for purposes of com-
pletion of proceedir.gs in terms of Section 269UD(l). This further direction
shall also be a part of the main judgment.
c
Certified copy of the main order as well as this order of clarification
shall be made available to all those who seek such certified copies against
payment.

G.N. Petition allowed.