Holding

The circular fixing a 20% enhancement of the circle rate for the next year is within the Collector’s statutory competence.

Summary

The appellants challenged a circular dated 29 November 1991 issued by the Collector, which stipulated that land rates in Surajpur village would automatically increase by 20% after one year. They argued that the Collector, under Rule 340‑A of the U.P. Stamp Rules, could only fix a single circle rate for a biennial period and could not prescribe a future increase. The Court examined the nature of the circle rate, holding that it is a prima facie determination meant to guide the Registering Authority and is not final. It further observed that the Collector may fix rates for successive years if material shows a regular rise in land prices, and that the rule does not prohibit such enhancement. Relying on the precedent in State of Punjab v. Mohabir Singh, the Court concluded that the circular and the 20% enhancement were within the Collector’s competence. Consequently, the appeal was dismissed.

Issues considered

Whether the Collector, under sub‑rule (a) of Rule 340‑A of the U.P. Stamp Rules, 1942, has the authority to fix circle rates and to prescribe a 20% increase for the following year.
Whether the circular dated 29 November 1991 enhancing rates by 20% is ultra vires the Collector’s powers.

Legislation cited

U.P. Stamp Rules, 1942s. Rule 340-A

Subjects

Stamp dutyCircle rateCollector's powerRule 340-ALand valuationPrima facie determinationUnder‑valuationRegistration

Judgment

A RAMESH CHAND BANSAL AND ANR.
v.
DISTRICT MAGISTRATE/COLLECTOR GHAZIABAD AND ORS.

MAY I I, 1999

B [A.P. MISRA AND N. SANTOSH HEGDE. JJ.]
F
'

Stamp Act-U.P. Act XI of 1969 Section 47-A-U.P. Stamp Rules, 1942-
Rule 340-A(a) Circle Rate is a prima facie determination of the value of the
land by the collector for guidance to the assessing authority in determining
C the stamp duty-it is a mere guideline and demarcates the exercise of power
between the assessing authority and the collector-If the property is
undervalued in relation to the circle rate, then the matter is to be referred
to the collector and the property owner has the right to prove the correctness
of the valuation as submitted by him.
D The appeal is against the dismissal of writ petition, challenging a
circular dated 29th November, 1991 whereby, inter alia, the rates of land in
village of Surajpur were to increase by 20% after one year from the date
of notification. The appellant paid the stamp duty but disputed the enhancement
by 20%, and refused to pay it in spite of a Show Cause notice.
E
Dismissing the appeal, the Court

HELD: 1. The object of the Indian Stamp Act is to collect proper stamp
duty on an instrument or conveyance on which such duty is payable. This is
-
to protect the State revenue. It is matter for common knowledge that in order
F to escape such duty by unfair practice many a time under valuation of a
property or lower consideration is mentioned in a sale deed. Imposition of
stamp duty on sale deeds ~re on the actual market value of such property
and not the value described in the instrument. Thus an obligation is cast on
authority to properly ascertain its true value for which he is not bound by
G the apparent tenor of the instrument. He had to truly decide the real nature
of the transaction and value of such property. For this, the Act empowers an
authority to charge stamp duty on the instrument presented before it for
registration. The market value of a property may vary from village to village,
from location to location and eve~ may differ from tile sizes of area and other
relevant factors. This apart there has to be some material before such
H - authority as to what is the likely value of such property in that area. In its
' 462
R.C. BANSAL v. DISTT. MGST./COLLECTOR 463

absence it would be very difficult for such Registering Authority to assess A
the valuation of such instrument. It is to give support to the Registering
Authority Rule 340-A is introduced. Under this Rule Collector has to satisfy
himself based on various factors mentioned therein before recording the
circle rate, which would at best be the prima facie rate in that area concerned.
A copy of the statement recording circle rate and average price of land under· B
the said Rule 340-A has to be supplied by the collector biennially in every
pargana, corporation or local body of this district. The supply of biennial
statement would only mean supplying such statement once in two years but
while supplying that statement there is no inhibition either under this Rule
or any other Rule or under the Act nor any provision has been pointed out
which restricts the Collector to give such rate differently for two years. The C
restriction, if any, is that such statement shall only be supplied once in two
years. If there be any material in possession of the Collector clearly indicating
a regular pattern of increasing percentage of the prices of land every year
then to that extent if he in his biennial statement refers to such increase
for the following years it cannot be said that the Collector lacks competence
to exercise such power. (466-C-F; 468-E-G) D

State of Punjab & Ors. v. Mohabir Singh & Ors., (1996) 1 SCC 609,
referred to.

2. Under Section 47-A introduced by the UP Act XI of 1969 conveys E
how a Registering Authority is to deal in case where there is divergence in
the valuation between what is described in an instrument and in the circle
rate. Reading Section 47-A with the aforesaid Rule 340-A it is clear that the
circle rate fixed by the Collector is not final but is only a prima fa<;ie
determination of rate of an area concerned only to give guidance to the
Registering Authority to test prima facie whether the instrument has properly F
described the value of the property. This is merely a guideline which helps
the Registering Authority to assess the true valuation of a transaction in an
instrument. The circle rate under this Rule is neither final for the authority
nor to one subjected to pay the stamp duty. So far as sub-sections (1) and (2)
are concerned they have very limited application as they only direct the G
Registering Authority to refer to the Collector for determination in case
property is under valued in such instrument. The circle rate does not take
away the right of such person to show that the property in question is
correctly valued as he gets an opportunity in case of under valuation to prove
it before the Collector after reference is made. This also marks the dividing
line for the exercise of power between the Registering Authority and the H
~-·

464 SUPREME COURT REPORTS [1999] 3 S.C.R

A Collector. In case the valuation in the instrument is same as recorded in the
circle rate or is truly described it could be registered by Registering
Authority but in case it is under valued in terms of sub-section (1) or sub-
section (2) it has to be referred and decided by the Collector. (468-A-D)

CIVIL APPELLATE JURISDICTION: Civil Appeal No. 229of1997.
B
Form the Judgment and Order dated 7.7.95 of the Allahabad High Court
in W.P. No. 781of1994.

Manoj Swarup, Ms. Lalita Kohli and Ms. Maulina Swarup for M/s
Manoj Swarup & Co. for the Appellants.
c
A.K. Goel, Saurabh S. Shamshery and Pradeep Misra for the Respondents.

The Judgment of the Court was delivered by

MISRA, J. The short question raised is: whether the Collector while
D exercising powers under sub-Rule (a) of Rule 340-A of the U.P. Stamp Rules,
1942 framed under the Indian Stamp Act had the competence while fixing
circle rates to enhance such rate by 20 per cent for the next year in question?
The appellants, in other words, have challenged circular dated 29th November,
1991 which became effective from lst December, 1991 under which the rate
E chargeable in Village Surajpur of revenue villages located in Tehsil Dadari area
is fixed as under:
,,
~~~~~~~~~~~~~~~~~~~~~~~~~~~-

"Prescribed rate on Prescribed rates on
Road per sq.mt. road (beyond I 00
Mts.) per sq.mt.

I. Surajpur Residential Plots 600.00 400.00
2. Surajpur Commercial Area Plots 750.00 300.00
3. Surajpur Commercial Plots 3000.00 2500.00
G

-..
Note:

All the costs shown in the above inventory will automatically be
deemed increased by 20% after one year. "
H {Emphasis supplied}
>\

R.C. BANSAL v. DISTT. MGST./COLLECTOR [MISRA, J.) 465

The appellants had challenged the note by which the rate was deemed A
to increase by 20% after one year.

The appellants purchased agricultural land through registered sale deed.
The sale consideration being less than the aforesaid circle rate, the appellants
had to pay the additional stamp duty which they have paid. The Registering
Authority after registering the same instead of returning the sale deed sent B
the same to Additional District Magistrate (Finance and Revenue) under
Section 47-A of the Indian Stamp Act who issued show-cause notice to the
appellants for the enhanced payment of stamp duty. The difference sought
to be recovered was not between the value shown in the sale deed and the
said circle rate but the rate which is enhanced to 20% as per the note in the C
said circle rate. Dispute in this case is only with respect to this enhancement
of 20%. The appellants instead of replying to the said show-cause, filed a writ
petition before the High Court, for quashing the said circular and the impugned
notice and for returning the sale deed already registered ignoring 20%
enhancement. The High Court dismissed the writ petition holding the said
circular to be within the competence of the Collector. Aggrieved by the said D ·
decision the present appeal has been filed.

-· The said circular issued under the aforesaid sub-rule (a) of Rule 340- A
of the U.P. Stamp Rules, 1942, is quoted hereunder:

"(a) Every Collector•shall biennially supply to the District Registrar E
and such other officers as the State Government may specify, a copy
of the statement, showing classification of soil, circle rate and average
price of land appertaining to each such classification situate in every
pargana, corporation or local party of his district."

Mr. Manoj Swamp, learned counsel for the appellants, submits that the F
Collector could only fix the circle rate composite for two years but not
different rates by splitting for two different years and even if it could, the note
to the impugned circular enhancing the rate for the next year by 20% is
conjectural, arbitrary and beyond the powers of the Collector. He made strong
reliance on the word "biennially" in the aforesaid Rule which would mean a G
rate to be for a period of two years, the Collector cannot fix different rates
for two different years. In reply, Shri A.K. Goel, learned Additional Advocate
General for the State, repelling this submits that under this no duty is cast
upon the Collector to fix a single or inflexible rates for two years. It is for the
Collector to determine the price of the land which he may determine either for
each year or for both year. He submits that the Collector fixed the rate on the H
466 SUPREME COURT REPORTS [1999] 3 S.C.R.

A basis of material before him including the enhancement of 20% for the next
year. If there be materials on the record indicating the trend of rise in prices
of land every year, the enhancement indicated for the next year in question
cannot be said to be either arbitrary or beyond the powers vested in the
Collector. In the present case, neither the vires of the Rule nor lack of material
B before the Collector to fix the price is challenged. The challenge is confined
to the power of enhancement for the next year in question as has been done
in this case by increasing the rate by 20%.

The object of the Indian Stamp Act is to collect proper stamp duty on
an instrument or conveyance on which such duty is payable. This is to
C protect the State revenue. It is matter for common knowledge in order to
escape such duty by unfair practice, many a time under valuation of a
property or lower consideration is mentioned in a sale deed. The imposition
of stamp duty on sale deeds are on the actual market value of such property
and not the value described in the instrument. Thus, an obligation is cast on
authority to properly ascertain its true value for which he is not bound by
D the apparent tenor of the instrument. He has to truly decide the real nature
of the transaction and value of such property. For this, Act empowers an
authority to charge stamp duty on the instrument presented before it for
registration. The market value of a property may vary from village to village;
from location to location and even may differ from the sizes of area and other
E relevant factors. This apart there has to be some material before such authority
as to what is likely value of such property in that area. In its absence it would
be very difficult for such Registering Authority to assess the valuation of
such instrument. It is to give such support to the Registering Authority the
Rule 340-A is introduced. Under this Collector has to satisfy himself based
on various factors mentioned therein before recording the circle rate, which
F would at best be the prima facie rate of that area concerned. This is merely
a guideline which helps the Registering Authority to assess the true valuation
of a transaction in an instrument. This gives him material to test prima facie
whether description of valuation in an instrument is proper or not. Under
\
Section 4 7-A introduced py the UP Act XI of 1969 conveys how a Registering
G Authority is to deal in case where there is divergence in the valuation /-
between what is described in an instrument and in the circle rate. The relevant
sub-sections 1, 2 and 3 of Section 47-A are quoted hereinbelow:

"4 7-A. Instruments of conveyance etc., if undervalued, how to be
dealt with. - (I) If the market value of any property which is the
H subject of any instrument of conveyance, exchange, gift, settlement,

!
R.C. BANSAL v. DISTT. MGST./COLLECTOR [MISRA, J.] 467
award or trust, as set forth in such instrument is less than even the A
minimum value determined in accordance with any rules made under
this Act the registering officer appointed under the Indian Registration
Act, 1908, shall refer the same to the Collector for detennination of the
market value of such property and the proper duty payable thereon.

(2) Without prejudice to the provisions of sub-section (I), if such B
registering officer while registering any instrument of conveyance,
exchange, gift, settlement, award or trust, has reason to believe that
the market value of the property which is the subject of conveyance,
exchange, gift, settlement, award or trust, has not been truly set forth
in the instrument, he may, after registering such instrument, refer the C
. 'I same to the Collector for determination of the market value of such
I
property and the proper duty payable thereon.

(3) On receipt of a reference under sub-section (I) or sub-section (2)
the Collector shall, after giving the parties a reasonable opportunity
of being heard and after holding an inquiry in such manner as may D
be prescribed by rules made under this Act, determine the market
value of the property which is the subject of conveyance, exchange,
gift, settlement, award or trust and the duty as aforesaid. The
difference, if any, in the amount of duty shall be payable by the
person liable to pay the duty."
E
Sub-section (1) provides, in case valuation described in an instrument
is less than the minimum value determined in accordance with the said rule
then such officer shall refer it to the Collector for ascertainment of the market
value of such property, for levying proper duty on such instrument. Sub-
section (2) is without prejudice to sub-section (1 ). Similarly, under it if the

- registering officer believes that the market value of the property described in
an instrument has not been truly set forth, he may, after registering such
instrument refer the same to the Collector for determination of true market
value of such property. So, we find both under sub-section (1) or (2) where
F

the value described in such instrument is less than the minimum value fixed
under the Rules or even otherwise if such registering officer under sub- G
section (2) has reasoned to believe that the market value of the property has
not been truly set forth he may refer the matter to the Collector for true
ascertainment of its market value. On receipt of such reference by the Collector
under sub-section (3) he issues notice to the concerned party and after giving
such party reasonable opportunity of being heard, may be after holdi!1g an
enquiry determine the market value of such property. Reading Section 47-A H

. '
.i

468 SUPREME COURT REPORTS (1999] 3 S.C.R.

A with the aforesaid Rule 340-A it is clear that the circle rate fixed by the
Collector is not final but is only a prima facie determination ofrate of an area
concern only to give guidance to the Registering Authority to test prima facie
whether the instrument has properly described the value of the property. The
circle rate under this Rule is neither final for the authority nor to one subjected
to pay the stamp duty. So far sub-sections (I) and (2) it is very limited in its
B application as it only directs the Registering Authority to refer to the Collector
for determination in case property is under valued in such instrument. The
circle rate does not take away the right of such person to show that the
property in question is correctly valued as he gets an opportunity in case of
under valuation to prove it before the Collector after reference is made. This
C also marks the dividing line for the exercise of power between the Registering t
Authority and the Collector. In case the valuation in the instrument is same
as recorded in the circle rate or is truly described it could be registered by
Registering Authority but in case it is under valued in tenns of sub-section
(1) or sub-section (2), it has to be referred and decided by the Collector. Thus,
the circle rate, as aforesaid, is merely a guideline and is also indicative of
D division of exercise of power between the Registering Authority and the
Collector.

Reverting to the submission for the appellants that enhancement by
20% for the next year in question to be beyond the power of the Collector
E under Rule 340-A as he could only fix one circle rate in a span of two years,
we find no merit in_ it. Under the said Rule Collector has to supply biennially
to the District Registrar a copy of the statement recording circle rate and
average price of land etc. in every pargana, corporation or local body of his
district. The supply of biennially statement would only mean supplying such
statement once in two years but while supplying that statement there is no
F inhibition either under this Rule or any other Rule or under the Act nor any
pointed out which restricts the Collector to give such rate differently for two
years. The restriction, if any, is that such statement shall only be supplied ,~c_
once in two years. If there be any material in possession of the Collector

G
clearly indicating a regular pattern of increasing percentage of the prices of
land every year then to that extent if he in his biennially statement refers to
t_
...
such increase for the following years it cannot be said that the Collector lacks
competence to exercise such power. As we have said, this assessment by the
Collector is only prima facie and is not final and is open to both the Authorities
or person seeking registration to prove to the contrary the actual market value
of such property. This circle rate in no way effects any party when finally
H determining its value. In the present case, the vires of this Rule is not under
•
R.C. BANSAL v. DISTT. MGST./COLLECTOR [MISRA, J.] 469

challenge nor there is any challenge that there was no such material before A
the Collector to enhance for subsequent year by 20 per cent. We do not find
any such ground raised nor appellants could point out any raised before the
authorities concerned. On the contrary, learned counsel for the State submits
that there was sufficient material before the State showing the trend of
increase in land prices during the relevant years in question to sustain the B
fixation of 20% enhanced price for the next year in question.

In State of Punjab & Ors. v. Mohabir Singh & Ors., [1996] I SCC 609,
it was held:

"The guidelines provided by the State would only serve as prima facie
material available before the Registering Authority to alert him regarding C
the value. It is common knowledge that the value of the property
varies from place to place or even from locality to locality in the same
place. No absolute higher or minimum value can be predetermined. It
would depend on prevailing prices in the locality in which the land
covered by the instrument is situated. It will be only on objective D
satisfaction that the Authority has to reach a reasonable belief that
the instrument relating to the transfer of property has not been truly
set forth or valued or consideration mentioned when it is presented
for registration. The ultimate decision would be with the Collector
subject to the decision on an appeal before the District Court as
provided under sub-section (4) of Section 47- A. E
It would thus be seen that the aforesaid guidelines would inhibit
the Registering Authority to exercise his quasi-judicial satisfaction of
the true value of the property or consideration reflected in the
instrument presented before him for registration. The statutory
language clearly indicates that as and when such an instrument is F
presented for registration, the Sub-Registrar is required to satisfy
himself, before registering the document, whether the true price is
reflected in the instrument as it prevails in the locality. rf he is so
satisfied, he registers the document. If he is not satisfied that the
market value or the consideration has been truly set forth in the G
instrument, subject to his making reference under sub-section (I) of
Section 47·A, he registers the document. Thereafter, he should make
a reference to the Collector for action under sub-sections (2) and (3)
of Section 47-A. Accordingly, we hold that the offending Instructions
are not consistent with sub-section (I) of Section 47·A. It would,
therefore, be open to the State Government to revise its guidelines H
'I I
470 SUPREME COURT REPORTS [ 1'999] 3 S.C.R.

A and issue proper directions consistent with the law."

This was a case under the amended Punjab Act, 1982 in which sub-
sections l, 2 and 3 of Section 47-A are similar to sub-sections 2,3 and 4 of
Section 47-A of the U.P. Act. Only sub-section (l) of the U.P. Act is different
under which it directs the Registering Authority to refer the matter to the
B Collector in case the description of the value in the instrument is less than
even the minimum value determined under the Rules.

For the aforesaid reasons, we do not find any merit in·'the submission.
Accordingly, we hold the impugned circular and the notice to be valid. Notice
has already been issued to the appellants and they have an opportunity to
C contest the valuation prima facie fixed under the said circular and to prove
to the contrary in the proceedings before the Collector. Hence, for all the
aforesaid reasons, the present appeal is devoid of any merit and, accordingly,
dismissed. Costs on the parties.

D I.M.A. Appeal' dismissed.

_,
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