Holding

The notice complied with Section 5A(2); no personal hearing was required when objections were sent by post, and the declaration was within the one‑year period, rendering the petition untenable.

Summary

The petitioner, a landowner, challenged the acquisition of his land by the State of Gujarat, arguing that the notice issued under Section 5A(2) of the Land Acquisition Act, 1894 required a personal hearing which was not provided, and that the declaration under Section 6 was published beyond the one‑year limit. The notice had invited objections to be filed in writing and stated that the objector or his advocate would be heard at the time of filing. The petitioner sent his objections by post and did not appear in person or through counsel. The Court held that when objections are submitted by post, the requirement of a personal hearing is satisfied and no further hearing date need be fixed, so the provisions of Section 5A(2) were complied with. It also found that the declaration was published within the statutory one‑year period, taking into account the last date of local publication and the stay by the High Court. Consequently, the petition was dismissed.

Issues considered

Whether the failure to grant a personal hearing after objections were filed by post violates Section 5A(2) of the Land Acquisition Act, 1894.
Whether a declaration under Section 6 of the Act must be published within one year from the date of the notification, excluding periods of stay.

Legislation cited

Land Acquisition Act, 1894s. 4(1), s. 5A(2), s. 6

Subjects

land acquisitionright to be heardSection 5A(2)declarationlimitation periodpersonal hearingprocedural compliance

Judgment

A RAMBHAI LAKHANBAI BHAKT
v.
STATE OF GUJARAT AND ORS.
·-'
APRIL 10, 1995

B [K. RAMASWAMY AND B.L. HANSARIA, JJ.]

Land Acquisition Act, 1894:

Section 5A(2}-Land Acquisition-Notice calling upon the owner to
c file objections in person or through Advocate-Notice also stating that at the
time of hearing the objections he will be personally heard--l'etitioner filing
objections by post-Consideration of objection-Awar~Subsequent cha/-
lenge by owner to Notification under section 4( 1) and declaration under
section 6-Ground that non affording of personal hearing was violative of
Section 5A(2)-Held not valid.
D
Section 6--l'ublication of declaration-Period of limitation--Computa-
tion for.

In land acquisition proceedings a notice under section SA of the \
Land Acquisition Act, 1894 was issued to the petitioner asking him to file
E
objections in respect of the acquisition either personally or through his
Advocate. The notice also stated that at the time of hearing objections he
or his advocate would be heard personally. However, the petitioner neither
personally appeared nor through an advocate bnt sent his objections by
post. After considering the objections the Government issued a declaration
F under Section 6.

The petitioner unsuccessfully challenged the Notification issued
under section 4(1) as well as the declaration under section 6 before the
High Court on the ground that since no personal hearing was given to him
it was violative of sub-section (2) of Section SA.
G
In this Court it was contended for the petitioner that (i) when the
petitioner had filed his objections, the Land Acquisition Officer was
obliged to give further notice fixing a specified date for adduction of I
evidence and personal hearing and since that was not done, it was violative f-
H of sub-section(2) of Section SA; and (ii) since the declaration under section
272
R.L.£HAKTv. STATE OF GUJARAT 273

6 was published beyond one year it was invalid In law. A
Dismissing the petition, this Court
"" HELD: 1. It is unexceptional that when an opportunity of hearing is
obliged to be given as enjoined under sub-section (2) of section SA of the
Land Acquisition Act, 1894 the petitioner is entitled to appear and be B
heard personally or through authorised representative or an advocate, on
filing the objection to the acquisition. [276-H, 277-A)

2. Admittedly, the petitioner had not appeared, either in person or
---- through advocate but had chosen to file his objections through post. It
would be obvious he did not intend to avail the benefit of bearing while c
submitting objections. The petitioner having chosen to send the objections
through post and when the notice did indicate that he was to appear either
in person or through advocate or authorised representative along with
objections but failed, then there would be no need to give any further date
of hearing. Therefore, no fault could be laid at the door or Land Acquisi·
tion Officer for not giving opportunity of hearing. [277-F, H, 278-B)
D

Shyam Nandan Prasad & Ors. v. State of Bihar and Ors. [1993) 4 SCC
I
~ 255 and Sir Farid Ahmed Abdul Samad and Anr. v. The Municipal Cotpora-
tion of the City of Ahmedabad and Anr., [1976) 3 SCC 719, referred to.

3. Under clause (2) of section 6 the declaration shall be published E
within one year from the date of the publication of the notification under
s.4(1). That section clearly adumbrates that one year has to be counted
from the date of the publication namely In the Gazette or last of the dates
of publication envisaged thereunder, excluding the time during which
further proceedings were stayed by the High Court. The last date is F
referred to as the date of the publication of the notification to reckon one
year. It would be seen that declaration under section 6 was published
within one year. of the last of the dates of local publication under sec-
tion4(1). [278-D, El
>
CIVIL APPELLATE JURISDICTION : Special Leave Petition {C) G
No. 378 of 1995.

From the Judgment and Order dated 5.9.94 of the Gujarat High
-I Court in S.C.A. No. 7965 of 1992.

Anil B. Diwan, Anii Nauriya and Ms. Indu Goswamy for the H
274 SUPREME COURT REPORTS (1995] 3 S.C.R.

A Petitioner.

The following Order of the Court was delivered:

After hearing learned counsel for the petitioner at length, we find
that it is not a fit case for interference. It is seen that admittedly a notice
B was issued under Section SA to the petitioner on July 18, 1991 calling upon
the petitioner to submit his written objections, if any, and it was stated
specifically in the notice thus:

"Therefore, you are hereby informed that if you have any objection
c in respect of acquisition of this land pursuant to the resolutions
under the said Act, you shall, personally or through your
authorised person or Advocate, make representation in that
respect to the office of the Deputy Collector and Land Acquisition
Officer Shri Vyas within 30 days from the date of the publication
of this public notice and the time of producing objections, the facts
D
stated by you or your advocate shall also be heard.'

The petitioner was informed that if he had any objection in respect
of the acquisition of his land, pursuant to the notification under the said
Act, he should, personally or through his authorised representative or
E Advocate, make representation in that behalf to the Deputy Collector and
the Land Acquisition Officer Shri Vyas, within 30 days from the date of
~he pnblication of the public notice. At the time of producing objections
for the facts stated by him, his authorised representative or himself or his
advocate would also be heard. Pursuant thereto, admittedly, the petitioner
p had sent his objections by post. But he Jid not personally appear nor
appeared through an advocate. The objections had been considered and a
report had been submitted to the State Government. Pursuant thereto,
after considering the report, the declaration under s.6 of the Land Acquisi-
tion Act 1/1890 as amended under Act 68/1984 was published on July 16,
(
1992 as per the procedure prescribed therein.
G
The Petitioner filed writ petition in the High Court challenging the
notification published under section 4(1) on June 25, 1991 and also the
declaration. The principle contention raised in the High Court was that .-
since no personal hearing had been given to the petitioner, it is violative
H of sub-s.(2) of s.5A of the Act. Sub-s.(2) contemplates thus:
R.L. BHAKTv. STATE OF GUJARAT 275

''Hearing of objections-. (1) Any person interested in any land A
which has been notified under Section 4, sub-section (1), as being
needed or likely to be needed for a public purpose or for a
Company may, [within thirty days from the date of the publication
of the notification], object to the acquisition of the land or of any
land in the locality, as the case may be,
B
(2) Every objection under sub-section (1) shall be m~de to the
Collector in writing, and the Collector shall give the objector an
opportunity of being heard [in person or by any person authorised
by him in this behalf] or by pleader and shall, after hearing all such
objections and after making such further inquiry, if any, as he C
thinks necessary, [either make a report in respect of the land which
has been notified under Section 4, sub- section (1), .or make
different reports in respect of different parcels of such land, to the
appropriate Government, containing his recommendations on the
objections, together with the record of the proceedings held by D.
him, for the decision of that Government]. The decision of the
[appropriate Government] on the objections shall be final.

J (3) For the purpose of this section, a person shall be deemed
to be interested in land who would be entitled to claim an interest
in compensation if the land were acquired under this Act." E
The High Court has considered the matter and recorded its finding
thus:

"The undisputed fact is that after objections had been filed in
writing by the petitioner, no formal notice was issued fixing a date F
for hearing of the said objection. On the facts of this case, the
question arise is whether provisions of Section 5A(2) of the Land
Acquisition Act should be taken to have been complied with when
notice of 18th July, 1991 postulated that at the limo of producing
the objections the objectors or !hell: Advocates will be heard.
G
Sub-section (2) of Section SA requires filing of objections in
writing and also casts mandatory duty on the Collector to give the
"--.'- objector an opportunity of being heard. in the instant case, vide a
notice dated 18th July, 1991 the petitioner was informed of two
things-firstly that objections should be filed by the petitioner within H
276 SUPREME COURT REPORTS (1995] 3 S.C.R.

A 30 days of the date of publication of the Notice and secondly, at
the time of producing the objections, the objector or his Advocate
shall be heard. The implication of this is very clear. No specific
date for the hearing of the objections was fJXed, but what was stated
was that the objections should be filed in person either' by the
objector himself or by the authorised person or through an Advo-
B cate and then hearing would be granted at that time. The said
notice contemplated personal hearing being afforded at the time
of production of the objections. The petitioner however, chose to
file his objection in writing and sent the same by post. It is not the
case of the petitioner that any attempt was made to personally go
c to the office of the Collector with a copy of the objections. It is
also not in dispute that the objections which were filed in writing
were taken into consideration and the report made. In other words,
it is not that the written objections were disregarded.

The observation of the Land Acquisition Collector in the award
D has to be read in the context of the said notice dated 18th July,
1991. Therefore, when in the award it is stated that date was fJXed
for personal hearing and no one was present on behalf of the \.
objector, the implication clearly is that though 30 days time was
given for the producing of objections and the hearing was to be
E granted at the time of production of the same, the petitioner was
not personally present. In our opinion, the provisions of Section
5A(2) of the Land Acquisition Act were duly complied with in the
present case. 11

p Shri Anil B. Diwan, learned senior counsel appearing for the
petitioner, placing reliance on the decision of this Court in Sir Farid Ahmed
Abdul Samad & Anr. v. The Municipal Corporation of the Oty of Ah-
medabad & Anr., reported in (1976] 3 SCC 719 strenuously contended that
the owner of the land has a right to object to the acquisition by placing
necessary material and if necessary by adduction of evidence and cross
G examination of the witness of the respondent. When he has filed the
objections, the Land Acquisition Officer is obliged to give further notice
fixing a specified date for adduction of evidence and hearing. Since that
was not done, it is violative of sub- s.(2) of Section 5A of the Act. It is
unexceptional that when an opportunity of hearing is obliged to be given
H as enjoined under sub-s.(2) of s.5A of the Act, the petitioner is entitled to
)
R.L.BHAKTv. STATEOFGUJARAT 277

appear and be heard personally or through authorised representative or an A
advocate, on filing the objection to the acquisition. Sections 4(1) and 6(2)
...> prescribe elaborate procedure as araended by Act 68 of 1984, to take
further action, within time frame for making the award under s.11. If he
fails to make award within two years from the date of the last of the dates
of publication under s.6(2), the proceedings for acquisition should lapse
B
unless it is covered by its Explanation. It was notorious that no award was
being made for years putting owner of the land to great hardship. The time
frame for making the award and other procedural steps in s.4(1) and s.6(2)

-- were designed to mitigate untold hardship to the person interested in the
land and to prevent needless burden on the exchequer. As its limb, unless
power under s.17(4) was invoked, enquiry under s.5A should be conducted
and completed within 30 days or within unavoidable minimum period. So,
c
the procedure for inquiry under s.5A is not like an elaborate trial. Section
5(2) was amended and right of hearing was made mandatory consistent
with development of law of natural justice. It would be open to the claimant
to avoid of the remedy of hearing. But it is mandatory that right of personal
D
hearing should be given to the owner or person interested in the land
· known to the land acquisition officer or he has reason to believe that such
I a person has interest in the land under acquisition.
~

Notice in the present case did indicate that the petitioner was at
liberty to file his objections within 30 days from the date of the publication E
of the notice and in case he wished to and at the time when he filed the
objections, he was also asked to appear either in person or through
authorised representative or advocate and he would be heard on his
objections. Admittedly, the petitioner had not appeared, either in person
or through advocate but had chosen to file his objections through post. It F
----./. would be obvious he did not intend to avail the benefit of hearing while
submitting objections. If it were a case that he personally appeared and
filed objections and requested for hearing, but for one reason or other he
was not heard, then time should be granted and perhaps it may be re-
quested to be adjourned to a next short date to be heard. That would be
a different circumstances to consider whether failure to give such a date G
for hearing violates s.5(2). The petitioner having chosen to send the objec-

- tions through post and when the notice does indicate that he was to appear
either in person or through advocate or authorised representative along
with objections but failed, then there would be no need to give any further
date of hearing. H
278 SUPREME COURT REPORTS [1995} 3 S.C.R.

A Right of hearing is mandatory under s.5A(2) and the Land Acquisi-
tion Officer is enjoined to give the opportunity of hearing to the owner or
person known to be interested in the land .. The ratio laid down by this
Court in Shyam Nandan Prasad & Ors. v. State of Bihar and Ors., [1993) 4
SCC 255 also referred by Sri Diwan, is unexceptional and has to be
B complied with. Accordingly, the Land Acquisition Officer has not taken it
lightly or casually in issuing the notice but the parties had not chosen to
appear either in person or through counsel. No fault could be laid at the
door of Land Acquisition Officer for not giving opportunity of hearing.

It is then contended that on the dates mentioned in his writ petition
C filed in the High Court, the declaration under s.6 was published beyond
one year ~d that, therefore, the declaration is invalid in law. We find no
force in the contention. It is seen that under clause (2) of s.6 the declara-
tion shall be published within one year from the date of the publication of
the notification under s.4(1). That section clearly adumbrates that one year
has to be counted from the date of the publication envisaged threunder
D excluding the time during which further proceedings were stayed by the
High Court. The last date is referred to as the date of the publication of
the notification to reckon one year. It would be seen that declaration under \
s.6 was published within one year of the last of the dates of local publica-
tion under s.4(1), in view of the closeness of the publication of these in the
E Gazette.
Though this point was not argued in the High Court, since the
learned counsel has raised the point, we have heard and answered accord-
ingly.

F The SLP is, therefore, dismissed.

T.N.A. Petition dismissed.