Holding

The Collector was justified in keeping the Section 28A applications pending while the Reference Court's award was under appeal, and the Government orders of 1994 and 2001 are valid, though the maintainability of the appellant’s Section 28A application remains unresolved.

Summary

The Uttar Pradesh government acquired land for the New Okhla Industrial Development Authority and awarded compensation under the Land Acquisition Act. Many landowners obtained enhanced compensation through a Reference Court under Section 18, but the Samiti, which could not make a reference, filed an application under Section 28A seeking the same benefit. The District Collector kept the application pending, citing State Government orders (1994 and 2001) that applications under Section 28A should remain pending while the Reference Court's award is under appeal before a higher court. The High Court dismissed the writ petition and the review, but the Supreme Court set aside those orders, upheld the validity of the Government orders, and held that the Collector was justified in postponing the decision. However, the Court left open the question of the appellant’s locus standi and maintainability of the Section 28A application for future determination.

Issues considered

Whether an application under Section 28A of the Land Acquisition Act is maintainable when the Reference Court's enhanced compensation award is under challenge and sub judice.
Whether the District Collector may keep Section 28A applications pending in accordance with State Government orders dated 14 January 1994 and 13 June 2001.
Validity and legality of the Government orders directing pending of Section 28A applications.
Whether the appellant, as President of the Samiti, has locus standi to file the Section 28A application.

Legislation cited

Land Acquisition Act, 1894s. 11, s. 18, s. 28A, s. 31
Land Acquisition (Amendment) Act, 1984

Subjects

Land acquisitionCompensationSection 28AReference CourtEnhanced compensationGovernment ordersMaintainabilityLocus standiSub judiceDistrict Collector

Judgment

[2008] 15 S.C.R 810

A Kl:;NDRIYA KARAMCHA.RI SEHKARI GREH NIRMAN
SAMIT! LTD., NOIDA
v.
STATE OF U.P.·& ANR.
(Civil Appeal Nos.r6850-51 of 2003)
.8 NOVEMBER 7, 2008
[C.K. THAKKER AND D.K. JAIN, JJ.]
I
_) )
Urban Development: \
c
Land Acqu_isition Act, 1897; Ss. 11, 18 and 28A:

Acquisition of land - Compensation - Reference -
Compensation enhanced by Reference Court - Challenged
by State - Some of land owners, including appellant, filing
D application in terms of Section 28A of the Act for
enhancement of compensation as they were not parties to
Reference - District Collector kept the application pending in
view of Government's Order directing the authorities to keep \,
application under Section 28A of the Act pending till final
E decision in the matter under challenge is arrived at by the
High Court/Supreme Court - Challenged by appellant and
others - Dismissed by High Court - Review Petition dismissed
by .High Court - Correctness of - Held: In case, Reference
Court enhanced compensation in excess of the amount
F awarded by the Land Acquisition Officer, any person t> \
interested in the land covered by the same acquisition
n_qtification could seek same relief by filing an application
under Section 28A oMhe Act - Hence, impugned order not •
· sustainable to that extent and set aside. /
.,__
G
Application under Section 28A of the Act - Kept pending
by District Collector in view of State Government' Orders -
Justification of...:. Held: De,.cision rendered by Reference Court
enhancing compensation did not attain finality as it was· sub
810

'
KENDRIYA KARAMCHARI SEHKARI GREH NIRMAN 811
SAMIT! LTD., NOIDA v. STATE OF U.P. & ANR.

• .. judice before the High Court, a superior Court - Under the A
circumstances, no infirmity found in the action of the. District
Collector in not deciding the applications.

Application under Section 28A ·•of· the·· Act -
Maintainability of - Held: The question as to maintainability B
of the application is kept open and to be decided after final
decision arrived at by the High Court/Supreme Court in the
appeal filed by the State against the order of Reference Court.
•
Nevr Okhla Industrial Development Authority, Uttar
Pradesh had acquisitioned certain land for planned C
development for public purpose. The Special land
Acquisition Officer awarded . compensation . to
landowners. Dissatisfied with the amount of
compensation, some of the land owners sought
Reference under s.18 of the Land Acquisition Act. D
Reference Court enhanced the compensation. Appellant-
Samiti could not make Reference earlier; it, therefore, filed
an application through its President in the Court of
Additional District Magistrate (Land Acquisition) along
with other land owners under Section 28A of the Act for E
·· grant of benefit of enhanced compensation. However, no
decision had been taken by the District Collector and the
Application was kept pending allegedly in pursuance of
policy decisions taken by the State Government vide its
Orders dated J~nuary 14, 1994 and June 13, 2001 to the F
effect that the applications filed by the persons who had
not sought Reference should be kept pending till the
matter is finally disposed of by the. High Court as well as
by the Supreme Court and no enhanced compensation
should be paid to them. Aggrieved by the non-disposal G
of his application under Section 28A of the Act, appellant
filed writ petition, which was dismissed by the High
Court. Review. Petition filed by the appellant was also
dismissed.by the High Court. Hence the present appeal
and connected appeals. ..
----------

a12 SUPREME COURT REPORTS . [2008] 15 S.C.R.

A Partly allowing the appeals; the Court
. "'
HELD: 1. It is true that the land was purchased by the
appellant from the Samiti and his name had been entered
in Revenue Record. But the appellant was also the
President of the Samiti and an application was made by
B
him in 'the capacity of the President. This Court would
have entered into the said question provided it had been
considered by the High Court and appropriate decision
had been taken thereon. The High Court, however, has •
~
not decided the maintainability or otherwise of application
c and locus standi of the appellant. The High Court
dismissed the writ petition holding that the petitioner
before the Court could not be said to be a 'little Indian'
who could not seek Reference under Section 18 of the
Land Acquisition Act because of 'poverty and ignorance'.
D This Court, therefore, leave the question of maintainability
of application under Section 28A of the Act by the
appellant open. [Paras 18 and 19] [821-F-H; 822-A-B]
,, t
Nanak Chand & Ors. v. State of U.P., (1996) 2 All WC
E 1294, referrer! to.
2.1. It is true that once Reference Court decides the
matter and enhances the compensation, a person who
is otherwise eligible to similar relief and who has not
sought Reference, may apply under Section 28A of the
F Act. If the conditions for application of the said provision •
...
have been complied with, such person_would IJe entitled
to the same relief _which has been granted to "other
persons seeking Refe_rence and getting enhanced
compensation. But, it is equally true that if Reference
G Court decides the matter and the State or acquiring body
challenges ·such enhanced amount of compensation and
the matter is "perlding .either before the High Court or
before this Court, the Collector would be within his power r
or·
authority to keep the application under Section 28A of ~

H the Act pending till the matter is finally decided by the
· KENDRIYA KARAMCHARI SEHKARI GREH NIRMAN 0 813
SAMIT! LTD., NOIDA v. STATE OF U.P. & ANR.
~

• High Court or the Supreme Court as the case may be. The A
reason being that the decision rendered by the
Reference Court enhancing compensation has not
attained 'finality' and is sub judice before a superior
Court. It is, in .the light of the said circumstance that the
State ofUttar Pradesh issued two Government orders on B
January 14, 1994 and June 13, 2001. Hence, no illegality
was committed by the trial Court in keeping the
•
,. applications under Section 28A of the Act pending till the
issue 'is finally settled by the Court and a decision has
been arrived at. The point is no longer res integra. [Paras c
29, 30 and 31] [826-E-H; 827-A-B]
Mewa Ram (Deceased) by his Lrs. & Ors. v. State of
Haryana through The Land Acquisition Collector, Gurgaon,
(1986) 4 SCC 151; The Scheduled Caste Co-operative Land
Owning Society Ltd., Bhatinda v. Union of India and others, D
k (1991)1 SCC 174; Babua Ram & Ors. v. State of U.P. & Anr.
'f
(1995) 2 SCC 689; Union of India & Anr. v.Pradeep Kumari
& Ors., (1995) 2 SCC 736 and Union oflndia (UOI) & Anr. v.
Hansoli Devi & Ors. (2002) 7 SCC 273, relied on.
2.2. The Collector was right in not deciding the E
application in view of the fact that the order passed by
the Reference Court was challenged by the Authority by
filing appeals before the High Court. The High Court had
~
entertained the appeals and also passed interim order.
• The contention of the appellants before the High Court F
that Government Orders dated January 14, 1994 and June
13, 2001 were illegal, arbitrary and ultra vires has no force.
In fact, those Government Orders are in consonance with
law laid down by this Court in Babua Ram and other
cases. Hence, no infirmity is found in the action of the G
Collector in not deciding the applications. [Para 34] [829-
8-D]'
.,,
.< Babu a Ram & Ors. v. State of U.P. & Anr. (1995) 2 SCC
689 and U.P. State Industrial Development Corpn. Ltd. v. State
of U.P. & Ors. (1995) 2 sec 766; relied on. H
814 . SUPREME COURT REPORTS [2008) 15 S.C.R.

A 3. For the foregoing reasons, the order passed by the
High Court in all these matters are set aside but validity
of Government Orders dated January 14, 1994 and June
13, 2001 is upheld. However, this Court has not decided
the locus standi of the appellant. As and when the
B question will come up befo·re the Collector/Land
Acquisition Officer, after the disposal of first appeals
before the High Court or before this Court or after the
decision attains finality, such question as to
maintairiability may be decided on its own merits after
c hearing the parties. All contentions of all parties are kept
open. (Paras 35 and 36) [829-D-F]
Case Law Reference:
(1996) 2 All WC 1294 Referred to Para 8
D
I
(1986) 4 sec 151 Relied on Para 23
(1991) 1 sec 174 Relied on Para 24
(1995) 2 sec 689 Relied on Para 25

E (1995) 2 sec 736 Relied on Para 26
(2002) 1 sec 213 Followed Para 27
(1995) 2 sec 766 Relied on Para 33
F CIVIL APPELLATE JURISDICTION : .Civil Appeal Nos.
6850-6851 of 2003. ·

From the final Judgment and Order dated 3.9.2001 of the
High Court of Judicature at Allahabad in CMWP No. 31958 of
2001.
G
WITH

C.A. Nos. 6852-6862 of 2003 -Ir
>.

J.C. Gupta, Vinay Gupta, Vikas Khurana and Bela
H Maheshwari for the Appellant.
KENDRIYA KARAMCHARI SEHKARI GREH NIRMAN 815
SAMITI LTD., NOIDA v. STATE OF U.P. & ANR.
).,,
,.. Shail Kumar Dwivedi, AAG., Vishwajit Singh, Ritesh A
Agarwal, Ravindra Kumar, Manoj Kumar Dwivedi, Gunnam
-t
Venkateswara Rao and Ravi Prakash Mehrotra for th·e
Respondents.

The Judgment of the Court was delivered by
B
C.K. THAKKER, J. 1. In the present group of appeals, the
., appellants have challenged the judgment and final order dated
I September 03, 2001 passed by the High Court of Judicature
at Allahabad in Civil Miscellaneous Writ Petition No. 31958 of
2001 and companion matters as also the order dated January c
04, 2002 passed in Review Civil Miscellaneous No. 85091 of
2001 and cognate matters.

2. Since common questions of fact and law have been
involved in all these-appeals, it is appropriate to deal with and D
;. ,, decide them by a common judgment.

3. To appreciate the controversy raised by the appellants,
it may be appropriate to narrate the facts of the case in Civil'
Appeal Nos. 6850-6851 of 2003. According to the Kendriya
Karamchari Sehkari Grah Nirman Samiti Ltd.('the Samiti' for E
short)-appellant herein, proceedings under Land Acquisition
Act, 1894 (hereinafter referred to as 'the Act') for acquisition
of 325.353 acres of land of village Chhalera, Pargana & Tehsil
Dadri, District Gautam Budh Nagar had been initiated. The
~
land was sought to be acquired for public purpose, viz., Planned F
Development of New Okhla Industrial Development Authority
(NOIDA), Gautam Budh Nagar. Preliminary notification under
Section 4 read with Section 17 of the Act by applying urgency
clause, was issued on October 30, 1987. It was published in
the Official Gazette on February 27, 1988. The final notification G
under Section 6 read with Section 17 of the Act was ;ssued
., A
on June 12, 1989 and published in Official Gazette on
December 14, 1989. Notices were published in the newspaper
indicating acquisition of land of various land-owner§ on
February 05, 1990. Award was made by the Special Land H
-
---- ... - -

·81-6 " , SUPREME COURT REPORTS .. (2008] 15;.S.C.R.

·A Acq'uisition Officer, NOIDA, District Ghaziabad in·terms of -.A
Dispute No. 1-35 'of 1988-92 on February 04, 1992. According ""
to the appellant, the Land Acquisition Officer awarded ...
'
compensation to the land-owners at the rate of Rs.43.64 ps.
per sq. yard. It may be stated that according to the appellant-
··s Samiti, it purchased a part"of the land on November 15, 1990.
The land was ~ransferred in the name of the Samiti. It is the case
of th,e appellant Samiti that several land-owners were not
s~tisfied with the amount of award offered by the Land -l-

Acquisition Officer and, they sought Reference un9er Section \

c 18 of the Act. More than 50 such References, therefore, came
up_ for consideration before the Reference Court. The Coun' of
the Additional Upper District Judge-X, Ghaziabad by judgmellt
and order dated August 28, 2000 enhanced the compensation
awarded to the land-owners by holding that the land-owners
were entitled to a sum of Rs.148.75 ps. per sq. yd. with 30%
D
solatium and 12% interest per annum. It was also observed that
the amount paid pursuant to the award passed by the Land
Acquisitfon Officer would be adjusted while making payment
1-
by the authorities as per the order in Reference.

E 4~ So far as the appellant-Samiti is concerned, it could not
make Reference along with other land-owners under Section
18 of the Act. It, therefore, filed an application through its
President Charan Singh, son of late Budh Singh on September
06, 2000 to the Additional District Magistrate (Land
.~
"'
F Acquisition), Gautam Budh Nagar under Section 28A of the
Act, inter alia, praying therein that the land of the applicant had
been acquired for public purpose, the applicant, who was the
.President of the Samiti, had purchased the land from the Samiti
in-December, -1990 and his name had also been entered in the
~~

G Revenue Record. It was also stated by him that he could not
challenge the Award passed by the Land Acquisition Officer.
The Reference Court, however, decided the Reference in other
cases and granted enhanced compensation. The same benefit,
).
-v
therefore, should be allowed to him also on the basis of the
order passed by the Reference Court.The said application was
H
..
KENDRIYA KARAMCHARI SEHKARI GREH NIRMAN SAMITI 81-7
LTD., NOIDA v. STATE OF U.P. & ANR. [C.K. THAKKER, J.]

.;....
).
made on September 06, 2000 i.e. within a period of three A
months from the date of decision in the Reference.

5. The main grievance of the applicant was that though in
the light .of the decision of Reference Court allowing the
Reference and granting enhanced compensation to other land- B
owners, the appellant also ought to have been granted the
similar benefit and he ought to have been paid additional
~ amount as held by the Reference Court, no decision had been
,; taken by the Additional District Magistrate and his application
was kept pending. According to the applicant, probably it was
done keeping in view the fact that being aggrieved by the order
c
passed by the Reference Court, the authorities preferred appeal
being FAQ No. 456 of 2001, etc. and the order passed by the
Reference Court was challenged in the High Court. It also
appears that the High Court entertained those appeals and
also passed interim order of stay on September 17, 2001. By D
,, the said order, operation of the order passed by the Reference
Court was stayed on condition that NOIDA would deposit the
entire amount awarded under the Reference within two months
from the date of the order. The claimants were permitted to
withdraw 25% of such amount without furnishing security and E
further 25% on furnishing security. The remaining amount (50%)
was ordered to be invested in Fixed Term Deposit in a
Nationalized Bank.

·-'< 6. The appellant also felt that the action of keeping pending F
the application of the appellant instituted under Section 28A of
the Act was taken in pursuance of policy decisions taken by
the State vide two Government Orders, dated January 14, 1994
and June 13, 2001. According to the appellant, the Government
Orders provided that if an order passed by a Reference Court G.
enhancing compensation is challenged by the authorities and
the matter is pending before a High Court or the Supreme Court
~
and an application under Section 28A has been made by the
... persons who had not sought Reference, such applications
should be kept pending till the matter is finally disposed of by
H

~
818 SUPREME COURT REPORTS [2008] 15 S.C.R.

A the High Court as well as by the Supreme Court and no
enhanced compensation should be paid to the applicants under
Section 28A of the Act at the enhanced rate.

7. The appellant being aggrieved by the non-disposal of
his· application, Linde'r Section 28A of the Act, because of
8
Government Orders, challenged the validity of both the
Government Orders dated January 14, 1994 and June·13, 2001
by ·filing Writ Petition No. 31958 of 2001 in the High Court of
Judicature at Allahabad. Similar writ petitions were filed by \

other land-owners.
c
8. The Division Bench of the High Court, however, on a
totally irrelevant and extraneous ground, viz., that the underlying
object of Section 28-A of the Act was to protect 'little Indians'
who because of their poverty and ignorance, could not file an
D application seeking Reference under Section 18 of the Act
which was not the position in the case on hand. According to
the High Court, since the petitioner before the High Court could
not be said to be a 'little Indian' who could not seek Reference
due to 'poverty or ignorance', his application was liable to be
E dismissed. The Court, in this connection, referred to and relied
upon a decision of the said Court in Nanak Chand & Ors. v.
State of U.P., (1996) 2 All WC 1294. The petition was
accordingly dismissed.

9. The appellant was convinced that the High Court was
F wholly wrong in dismissing the writ petition on the ground Which
was not at all germane or relevant and Nanak Chand had no
application as it was decided in completely different set of
circumstances. He, therefore, filed Review Petition but by a
cryptic order even Review Petition was dismissed. The
G appellant, therefore, has approached this Court by filing the
present appeal.
·~
10. Similar question has been raised by the appellants in ) '

all other matters.
H
KENDRIYA KARAMCHARI SEHKARI GREH NIRMAN SAMIT! 819
LTD., NOIDA v. STATE OF U.P. & ANR. [C.K. THAKKER, J.]

~ 11. On April 12, 2002, notice was issued. Similar notices A
were issued in other matters. Leave was granted on August 29,
2003. The matters were thereafter placed for final hearing and
that is how the matters are before us.

12. We have heard learned counsel for the parties.
B
13. The learned counsel for the appellants submitted that
{ the order passed by the High Court was totally erroneous and
/ wholly ill-founded. The question before the High Court was not··
as to maintainability of application under Section 28A of the
Act. The controversy was limited to the validity or otherwise of· c
Government Orders of 1994 and 2001. The High Court
misconstrued the prayer of the appellants and dismissed the
petition which was illegal and improper. The counsel also urged
that the High Court was wrong even in interpreting Section 28A
of the Act as held by this Court in several cases. The only D
l.
requirement of application under Section 28A of the Act is that
"I
an order must have been passed by a Reference Court under
the Act and the person moving an application under Section
28A must not have sought such Reference. Admittedly, in the
instant case, the Award passed by the Land Acquisition Officer E
and the offer made by hir:i was not accepted by certain land-
owners and the Award was ch~llenged by them. The appellant
was not one of those land-owners. Reference Court enhanced
the amount of compensation. It was, therefore, open to the
-..I<
\ appellant to seek similar relief by invoking Section 28A of the F
Act. He, accordingly, made an application. The Additional
District Magistrate did not reject the application of the appellant
on the ground that no such application was maintainable. He,
however, did not decide it. The grievance of the appellant-
landowner was limited to a direction to the Additional District
Q
Magistrate to decide the application. The High Court, however,
held that the application filed by the appellant under Section 28A
was itself not maintainc;ible which has caused serious prejudice
·~ to the appellant.

H
820 SUPREME COURT REPORTS , [2008) 15 $.C.R..

A t4: The counsel submitted that the underlying object of
Section 28A of the Act is to treat equals equally and the point
is concluded by several pronouncements of this Court. Hence,
even if a person is not poor or 'little Indian', he cannot be
deprived of the benefit of Section 28A. On that ground also,
,i3 the order passed by the High Court deserves to be set aside.
A prayer was, therefore, made to quash and set aside order
passed by the High Court as also two Government Orders
challenged in the writ petition by issuing a writ of mandamus
\
ordering the respondents to act as per the order passed by the
c Reference Court, to decide the application under Sedion 28A
of the Act and to pay enhanced compensation to the appellants.

· 15. The learned counsel for the respondent-authority,· on
the other hand, supported the order passed by the High Court.
He submitted that the Statement of Objects and Reasons
D behind enacting Section 28A of the Act was explicitly clear. The
provision has been inserted in the Act with a view to protect
'little Indians' who due to poverty or ignorance of law could not
challenge the Award passed by the Land Acquisition Officer
by seeking Reference. If a person who is otherwise aware of
E legal provisions and is in a position to challenge the Award by
seeking Reference under Section 18 of the Act, he cannot take
advantage of his own in-action or negligence by claiming
enhanced compensation in favour of other persons who had
sought Reference. It was also submitted that in any case, after
F the decision by the Reference Court, if the State or acquiring
body has challenged the legality and validity of the enhanced
amount of compensation in the High Court or in the Supreme
Court and the matter is sub judice, no amount can be paid to
an applicant who has made an application under Section 28A
G of the Act inasmuch as the main controversy and the order on
the basis of which such application is made is pending
adjudication before the superior Court. The action of the
Collector of not deciding the application, thus, is strictly in
accordance with law as also equitable and no prejudice can
H be said to have been caused to the applicant
KENDRIYAKARAMCHARI SEHKARI GREH NIRMAN SAMITI 821
LTD., NOIDA v. STATE OF U.P. & ANR. [C.K. THAKKER, J.]

16. It was also submitted that an application under Section A
)...,--
28A of the Act can be made only by 'person interested'. In the
instant case, according to the respondents, notification under
Section·4 was issued in 1987 and notification under Section 6
was issued in 1989. Even according to the appellant, he
purchased the property in November, 1990 i.e: after both the B
notifications were issued and published. He, therefore, by no
stretch of imagination, can be termed as 'person interested'.
t On that ground also, the application under Section 28A of the
I Act, was not maintainable and the appellant could not have filed
a writ petition nor he could have challenged the order passed c
by the High Court since he had no interest in the land when the
land was acquired. On all these grounds, it is submitted that,
the appeals deserve to be dismissed.

17. Having heard learned counsel for the parties, in our
opinion, the appeals deserve to be partly allowed. D
-+
. " 18. It is no doubt true that a preliminary objection has been
raised by the respondents as r13gards locus of the appellant
herein. According to the respondents, application under
Section 28A was filed (Civil Appeal No. 6850 of 2003) by E
Charan Singh, son of late Shri Budh Singh in his individual
capacity and not for and on behalf of the Samiti and such an
application was not maintainable. The contention of the
appellant, on the other hand, is that the objection raised by the
-"\ . respondents is riot well founded inasmuch as the application,
which is produced on record, itself expressly recites that the
F

application has been made by the Samiti 'through its President'
Charan Singh. It is true that the land was purchased by the
appellant from the Sarniti and his name had been entered in
Revenue Record. But the appellant was also the President of
G
the Samiti and an application was made in the capacity of the
President. -
-;- 19. We would have entered into the said question provided
~
it had been considered by the High Court and appropriate
H
822 SUPREME COURT REPORTS {2008] 15 S.C.R.

A decision had been taken thereon. The High Court, however, has
not decided the maintainability or otherwise of application and
locus standi of. the appellant herein. The High Court, relying on
Nanak·Chand, dismissed the writ·petition holding that the
petitioner· before the Court could not be said to be a 'little Indian'
B who could ·not se·ek·Heference under Section 18 of the Act
because of 'poverty and ignorance'. We, therefore, leave the
question· of mainta.inability of application under Section 28A of
the Act by the appellant open.

20. So far as interpretation of Section 28A is concerned,
C it may be stated that the said provision came to be inserted
by the Land Acquisition (Amendment) Act, 1984 (Act 68 of
1984) with effect from September 24, 1984.

21. The said Section reads as under;
D
28A. Re-determination of the amount of compensation
on the basis of the award bf the Court.-

(1) Where in an award under this Part, the Court allows to
the applicant any amount of compensation in excess of the
E amount awarded by the Collector under section 11, the
persons interested in all the other land covered by the
same notification under section 4, sub-section (1) and who
are: also aggrieved by the award of the Collector may,
notwithstanding that they had not made an application to
F '_the Collector under section 18, by ·written application to the
Collector within three months from the date of the award
of the Court require that the amount of compensation
payableJo him may be re-determined on the basis of the
"amount of compensation awarded by the Court:
G
'I
' Provided that in computing the period of three months
within which an application to the Collector shall be made
under this sub-section, the day on which the award was
pronounced and the time requisite for obtaining a copy of
:: . the award sha"u be excluded. . " '
H
KENDRIYA KARAMCHARI SEHKARI GREH NIRMAN SAMIT! 823
LTD., NOIDA v. STATE OF U.P. &ANR. [C.K. THAKKER, J.]

(2) The Collector shall, on receipt of an application under A
\ sub-section (1 ), conduct an inquiry after giving notice to all
the persons interested and giving them a reasonable
opportunity of being heard, and make an award
determining the amount of compensation payable _to the
applicants. B
(3) Any person who has not accepted the award under sub-
section (2) may, by written application to the Collector,
~·
require that the matter be referred by the Collector for the
/
determination of the Court and the provisions of sections
18 to 28 shall, so far as may be, apply to such reference
c
as they apply to a reference under section 18.

22. In the Statement of Objects and Reasons, for insertion
of Section 28A, it was, inter alia, observed;
D
"Considering that the right of reference to the civil
-+ court under Section 18 of the Act is not usually taken
""-
advantage of by inarticulate and poor people and is usually
exercised only by the comparatively affluent land-owners
and that this causes considerable inequality in the payment
E
of compensation for the same or similar quality of land to
different interested parties, it is proposed to provide an
opportunity to all aggrieved parties whose land is covered
under the same notification to seek re-determination of
compensation, once any one of them has obtained orders
...a., for payment of higher compensation from the reference
F
'
court under Section 18 of the Act".

23. The provision came up for consideration before this
Court in several cases. In the leading case of Mewa Ram
(Deceased) by his Lrs. & Ors. v. State of Haryana through The G
Land Acquisition Collector, Gurgaon, (1986) 4 SCC 151, "this
Court held that having regard to the Statement of Objects and
Reasons of the Amendment Act, it is clear that Section 28A is
--t·
.\ intended and meant for the inarticulate and poor people who
by reason of their poverty and ignorance have failed to take H
.._
824 SUPREME COURT REPORTS [2008] 15 S.C:R.
'
~

A advantage of the right of Reference to Civil Court under Section \I
18 ·of the; Act. It was also held that the provision was not ,(.
~

intended to reopen' an Award which had attained finality and
was of binding nature.
'.' .t ,.. . ~

24. Again, in /he Scheduled Caste Co.-operative Land
B
Owning Society Ltd., Bhatinda v. Union of India and others,
(1991) 1 SCC· 174; the Court held that once a claimant has
L
t-
sought and secured a Reference under Section 18 of the Act
and an order is passed, he cannot thereafter invoke Section
:t- ) r'
c 28A'of the Act for re-determination of compensation. " ~

!
~
25. In the well known decision in Babua Ram & Ors. v. l=-
State of UP. & Anr., (1995) 2 SCC 689, this Court considered
the question in detail. It was held that before Section 28A of
'I
the Act can be invoked, a person must show that he is person
D interested and is aggrieved as in respect of other lands
covered by the same notification under Section 4, higher
compensation has been awarded. An aggrieved person who _,_,+-
had not made an application for Reference under Section 18
of the Act thus becomes entitled to apply under Section 28A ....
E of the Act. The right to an aggrieved person under Section 28A
arises only when the Reference Court grants compensation in
excess of the amount awarded by the Collector under Section
11. It was also observed that such an application can be made
in writing by any 'aggrieved' person. The said expression would
F cover any interested person who had failed to make an ;..
application for Reference under Section 18 and would not be
confined to those who received compensation under protest. It
was also indicated that Section 28A is a 'complete Code' in
its~lf providing substantive right to 'an aggrieved person' to
claim compensation equal to that awarded to his neighbour
G
covered by the same notification under Section 4(1 ).

2·6. ·in Union of India & Anr. v. Pradeep Kumari & Ors.,
(1995) 2·scc 736, this Court discussed the object underlying --)--
).
Section 28A of the Act arid observed that such object would
' .
H
KENDRIYA KARAMCHARI SEHKARI GREH NIRMAN SAMITI _825
LTD., NOIDA v. STATE OF U.P. & ANR. [C.K. THAKKER, J.]

be better achieved by giving the expression 'an award' in A
- \, Section 28A its natural meaning as meaning the award that is
made by the court in Part Ill of the Act after the coming into
force of Section 28A. If the said expression in Section 28A(1)
is thus construed, a person would be able to seek re-
determination of the amount of compensation payable to him B
provided the following conditions are satisfied; •,

(i) An award has been made by the court under Part
~·
Ill after the coming into force of Section 28A;
~

(ii) By the said award the amount of compensation in c
excess of the amount awarded by the Collector
under Section 11 has been allowed to the applicant
in that reference;

(iii) The person moving the application under Section D
28A is interested in other land covered by the same
notification under Section 4(1) to which the said
~ award relates;

(iv) . The person moving the application did not make an
application to the Collector under Section 18; E

(v) The application is moved within three months from
the date of the award on the basis of which the re-
determination of amount of compensation is sought;
.• A
and F
(vi) Only one application can be moved under Section
28A for re-determination of compensation by an
applicant.
__,
27. A Constitution Bench of this Court in Union of India G
(UOI) & Anr. V. Hansoli Devi & Ors., (2002) 7 SCC 273 held
that dismissal of an application seeking reference under
Section 18 on the ground of delay also would not come in the
\ ~\ way of the claimant for re-determination of compensation under
Section 28A of the Act. Such person can be said to be a H
1 826 ~ SUPREME COURT REPORTS .[2008] 15 S.C.R.

A 'person. agg.rieved',. and would be entitled to make an
. application -to-receive compensation provided the conditions / ___
i,.ofthe said section are complied with.

28; Fromthe:aforesaiddecisions,-in our judgment, the law
';'B is well.settled and iti$ th~t against an award, if the Referen~e
Court allows the applicant and awards any amount of
compensation in excess of the amount awarded by the Land
· Acquisition Officer under Section 11 of the Act, any ·person
interested in the land covered by the same notification may }-

. C · make an application under Section 28A of the Act within the
period specified in the said· section and may seek the same
.. relief which has been granted to ·other land-owners by the
·. Reference Court.·

. 29. We ·are, however, of the considered opinion that the
: D appellant is not entitled to the reliefhe_prayed in the writ petition
· before the High Court as. well as before us in the present
proceedings so far as tlie direction to decide his application
under Section 28Aof the Act is concerned. It is true that once
· Reference Court decides the matter and enhances the
, E compensation, a person who is otherwise eligible to similar
relief and who has not sought Reference, may apply under l
Section 28A of the Act. If the conditions for application of the '
said provision have been.complied with, such person would be
entitled to the same relief which has been granted to other
F persons seeking Reference and getting enhanced
compensation. But, it is equally true that if Reference Court
decides.the matter and the State or acquiring body challenges
such enhanced amount of compensation and the matter is
pending either before the High Court or before this Court
G (Supreme Court), the Collector would be within his power or
~ut~ority to keep the application under Section 28A of the Act
pending till the matter is finally decided by the High Court or
the Sup'reme Court as the case may be. The reason being that
the decisi9n rendered by the Reference Court enhancing .--vr I
. compensatio:ri has not attained 'finality; and is sub judice
H . J •

\•
I

KENDRIYA KARAMCHARI SEHKARI GREH NIRMAN SAMITI 827
LTD., NOIDA v. STATE OF U.P. & ANR. [C.K. THAKKER, J.] .

before a superior Court. It is, in the light of the said A
t -\, circumstance that the Stat~ ,of U,P. issued two Gov.ernment
orders on January 14, 1994.and Ju.ne 13, 2001.

30. We see no fllegality 1n keeping the applications under
Section 28A of the Act pending till the issue is fina!IY settled
B
by the Court and a decision has been arrived at ..
31. The point is no longer res integra. In Babua Ram, a

·r· .~
similar contention was raised before this Court. It was submitted
on behalf of the claimant invoking Section 28A of the Act that
c
once a Reference Court enhances the compensation and a
person similarly situated makes an application under Section
28A of the Act, the Collector is bound to decide the application
and grant enhanced compensation. It was, therefore, submitted
that the Collector/ Land Acquisition Officer was under obligation
to re-determine compensation by granting benefit of the order D
of the Reference Court.
·'

t 32. Negativing the contention, this Court observed;

"However, with a view to avoiding uncertainty and
fluctuation, it would be appropriate that, the Collector, while E
paying compensation under Section 31, should explain in
vernacular language of the claimant informing all persons
interested in the compensation that they have a right to
protest the compensation determined under s. 11 before

.... receiving the same; has right to seek reference in writing
under Section 18 to the civil court and that the application
F

should be made expressing the specific objections in
writing within the limitation prescribed under Section 18.
In case of his failure to avail of the same, he would not be
entitled to further right and remedy to seek higher G
compensation. In case the claimant to be illiterate, it should
be properly explained to him in his mother tongue. The
statement made in this behalf by the Collector should be
in the mother tongue of the claimant. The Collector should
append a certificate that it was truly, correctly and properly H
"'
~828 SUPREME COURT REPORTS [2008) 15 S.C.R.

A explained and obtain the signature or thumb impression
in token thereof and this should be kept as part of the /·, (
record of the award proceedings. He should also maintain ..,,
a regular register in his office in the serietum duly signed
by hini and sealed and be kept in the personal custody of
B the Colledor. This would not only obviate the hardship to
the interested persons but also prevent ·corrupt practices
.in fabricating the applications for reference after the bar
of limitation. In this behalf, it is also necessary that the
Collector/LAO. should also maintain another register for
receipt of the applications under Section 28A indicating
-~
~

c
the date of its receipt, seal of the office and personal
signature of the Collector/LAO. concerned and the receipt
thereof duly communicated to the government or the
authorised officer in proviso to s. 11 of the Act".
D 33. The view in Babua Ram was reiterated in U.P. State
Industrial Development Corpn. Ltd. v. State of U.P. & Ors.,
(1995) 2 SCC 766. There, the Court stated; --
'l>:,.....
'The entire controversy has been considered by this
.E Court in Babua Ram and Ors.,. v. State of U.P. dated
4.10.1994 rendered in C.A Nos. 563/94 & batch and held
that since an appeal has been preferred by the State
against the award of the Dist. Judge made under Section
26 of the Act, the proper course open to the LAO., on an
application made under Section 28-A(1) of the Act, would
F
be to keep the appli~ations under Section 28-A(1) pending : ......
till the appeal filed against the award of the Dist. Judge is
disposed of by the High Court and· then to take action as
. 'per Sectipn 28-A(2)_of the Act. Following the law laid down
therein and subject to directions contained therein, we hold
G
that the_ High Court was not right in dismissing the writ
petitions, Therefor.e, the order of the High Court is· set
a.side .. The award of the Collector made. under Section 28- ~

. .A(2) is·q~ashed. The Collector/LAO. is directed to keep
· · · . .the applic;ation filed .under Section 28-A( 1) of the Act
~-
·H ' .: ~ ' ·,' ' . - . .' . .
KENDRIYA KARAMCHARI SEHKARI GREH NIRMAN SAMITI 829
LTD., NOIDA v. STATE OF U.P. & ANR. [C.K. THAKKER, J.]
~.
~- pending till the disposal of the appeal. On receipt of the A
judgment from the High Court or in an appeal by this Court
the L.A.O. is directed to determine the compensation
based on the final judgment according to law".

34. In our opinion, therefore, the Collector was right in not
8
deciding the application in view of the fact that the order passed
by the Reference Court was challenged by the New Okhla
4
Industrial Development Authority (NOIDA) by filing first appeals
;'
before the High Court. The High Court had entertained the
appeals and also passed interim order. The contention of the
appellants before the High Court that Government Orders dated
c
January 14, 1994 and June 13, 2001 were illegal, arbitrary and
ultra vires has no force. In fact, those Government Orders are
in consonance with law laid down by this Court in Babua Ram
and other cases. We, therefore, see no infirmity in the action
of the Collector in not deciding the applications. D

35. For the foregoing reasons, in our opinion, the appeals
deserve to be partly allowed. The order passed by the High
Court in all these matters are set aside but validity of
Government Orders dated January 14, 1994 and June 13, 2001 E
is upheld.

36. We may, however, hasten to add that as observed
hereinabove, we are not deciding about the locus standi of the
.,I,__
appellant. As and when the question will come up before the
Collector/Land Acquisition Officer, after the disposal of first
F
appeals before the High Court or before this Court or after the
decision attains finality, such question as to maintainability may
be decided on its own merits after hearing the parties. All
contentions of all part!es are kept open.
G
37. The appeals are accordingly allowed to the extent

t. ..
-- indicated above. In view of the facts and in the circumstances
of the cases, however, there shall be no order as to costs.

S.K.S. Appeals partly allowed.
H