Holding

After a sale deed conveys absolute marketable title, the corporation cannot enforce the two‑year construction condition or demand additional payment; the transfer is final and cannot be unilaterally cancelled.

Summary

The Andhra Pradesh Industrial Infrastructure Corporation (APIC) allotted industrial plots to transport entrepreneurs with a condition that units be established within two years, failure of which would lead to cancellation. The parties later executed sale deeds transferring absolute marketable title to the respondents after full payment, without any two‑year construction condition in the deeds. Six years later APIC issued show‑cause notices for cancellation and subsequently demanded 50% of the prevailing market value as a penalty for delay. The High Court held that once the sale deed was executed, APIC could not enforce the earlier allotment condition or demand additional payment, and the corporation’s demand was legally untenable. The Supreme Court affirmed this view, relying on Sections 5, 8, 10, 11 and 55 of the Transfer of Property Act and the principle that a completed transfer confers absolute title, rendering any post‑sale conditions void, and dismissed the appeals with costs.

Issues considered

Whether a condition in an allotment letter requiring construction within two years survives the execution of a sale deed conveying absolute title.
Whether the corporation can demand 50% of the prevailing market value as a penalty after the sale deed has been executed.
Whether the corporation can unilaterally cancel the transfer of property after the sale deed has been registered.

Legislation cited

Indian Contract Act, 1872s. 23
Registration Act, 1908
Specific Relief Act, 1963
Transfer of Property Act, 1882s. 10, s. 11, s. 23, s. 31, s. 32, s. 4, s. 5, s. 55, s. 6, s. 8

Subjects

Transfer of propertySale deedCondition precedentCancellation of allotmentDoctrine of proportionalityAdministrative lawMarketable titleIndustrial plotsPublic sector undertakingContractual obligations

Judgment

[2018] 3 S.C.R. 455 455

THE ANDHRA PRADESH INDUSTRIAL INFRASTRUCTURE A
CORPORATION LIMITED AND OTHERS
v.
S. N. RAJ KUMAR AND ANOTHER
(Civil Appeal No. 3020 of 2018) B
APRIL 10, 2018
[A. K. SIKRI AND ASHOK BHUSHAN, JJ.]
Transfer of Property Act, 1882: ss. 5, 8, 10, 11 and 55 –
Allotment of industrial plots to the respondents/entrepreneurs by
C
appellant-Corporation to construct transport offices and godowns
– Allotment letters contained terms and conditions that respondents
to establish their units within two years from taking possession,
otherwise allotment would be cancelled – Thereafter, agreement/
sale deeds entered into between the Corporation and the respondents
– Subsequently, issuance of notices for cancellation of plots since D
respondents failed to establish their units – Later Corporation revised
its decision of cancelling the allotments and demanded payment of
50% of the prevailing market value of the plots for condoning the
delay in raising the construction – Challenge to, by the respondents
– Single Judge of the High Court allowed the writ petitions – Upheld
E
by the Division Bench – On appeal, held: There was no condition
of completion of construction within a period of two years in the
sale deed but was only in the allotment letter – However, after the
said allotment, the Corporation not only received entire
consideration but executed the sale deeds wherein no such condition
was stipulated – Thus, the High Court rightly held that after the F
registration of sale deed of the property by the Corporation to the
respondents, transferring the ownership in the plots in the favour
of the respondents whereby the respondents acquired absolute
marketable title to the property, the Corporation had no right to
insist on the conditions mentioned in the allotment letter, which
G
ceased to have any effect after the execution of the sale deed –
Further, the High Court rightly held that the Corporation had
withdrawn the action of cancellation of the plots, instead, it
demanded 50% of the prevailing market value in lump sum towards

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456 SUPREME COURT REPORTS [2018] 3 S.C.R.

A the cost of the plots – There was no legal basis for such a demand
– Thus, the order passed by the High Courts upheld.
Dismissing the appeals, the Court
HELD: 1.1 There is no condition of completion of
construction within a period of two years in the sale deed. Such a
B condition was only in the allotment letter. However, after the said
allotment, the appellant-Corporation not only received entire
consideration but executed the sale deeds as well. In the sale
deeds no such condition was stipulated. Therefore, the High Court
is right in holding that after the sale of the property by the
C appellant-Corporation to the respondents, whereby the
respondents acquired absolute marketable title to the property,
the appellant-Corporation had no right to insist on the conditions
mentioned in the allotment letter, which cease to have any effect
after the execution of the sale deed. [Para 14] [464-A-C]
D 1.2 Section 5 of the Transfer of Property Act defines
‘transfer’ as conveyance of property from one living person to
one or more living persons. Sections 8, 10 and 11 thereof attach
sanctity and solemnity to a transfer of immovable property.
Section 55 of the Act deals with rights and liabilities of buyer and
seller. As per this provision, when the buyer discharges
E obligations and seller passes/conveys the ownership of the
property, the contract is concluded. Thereafter, the liabilities,
obligations and rights, if any, between the buyer and seller would
be governed by other provisions of the Contract Act and the
Specific Relief Act, on the execution of the sale deed. The seller
F cannot unilaterally cancel the conveyance or sale. [Paras 15-16]
[464-D; 465-F]
1.3 The submission that the doctrine of proportionality is
not applicable in these cases, cannot be accepted. In the realm of
Administrative Law ‘proportionality’ is a principle where the Court
G is concerned with the process, method or manner in which the
decision-maker has ordered his priorities and reached a
conclusion or arrived at a decision. The very essence of decision-
making consists in the attribution of relative importance to the
factors and considerations in the case. The doctrine of
proportionality thus steps in focus true nature of exercise-the
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THE ANDHRA PRADESH INDUSTRIAL INFRASTRUCTURE 457
CORPORATION LTD. v. S. N. RAJ KUMAR

elaboration of a rule of permissible priorities. ‘Proportionality’ A
involves ‘balancing test’ and ‘necessity test’. The ‘balancing test’
permits scrutiny of excessive onerous penalties or infringement
of rights or interests and a manifest imbalance of relevant
considerations. [Para 19] [467-D-F]
1.4 The submission that the land is not used for putting a B
factory building but was used for some other purpose, was not
pleaded by the appellant-Corporation in the High Court or even
in these appeals. This was not the reason for initially cancelling
the allotment or demanding payment of 50% of the prevailing
market value. Therefore, this oral argument advanced at the time
of hearing cannot be accepted without any material on record C
and when it was not the basis of cancellation/demand of payment.
[Para 20] [467-G; 468-A]
1.5 The High Court rightly held that the appellant-
Corporation had withdrawn the action of cancellation of the plots.
Instead, it demanded 50% of the prevailing market value in lump D
sum towards the cost of the plots. There is no legal basis for
such a demand, more so, after the registration of the sale deeds
in favour of the respondents thereby transferring the ownership
in these plots in their favour. [Para 21] [468-F-G]
Indu Kakkar v. Haryana State Industrial Development E
Corporation Ltd. & Anr. (1999) 2 SCC 37 : [1998] 3
Suppl. SCR 277 – distinguished.
State of Kerala v. Cochin Chemical Refineries Ltd.
[1968] 3 SCR 556; Teri Oat Estates (P) Ltd. v. U.T.,
Chandigarh & Ors. (2004) 2 SCC 130 : [2003] 6 Suppl. F
SCR 1235; Union of India v. G. Ganayutham, (1997) 7
SCC 463 : [1997] 3 Suppl. SCR 549; Mohinder Singh
Gill & Anr. v. The Chief Election Commissioner, New
Delhi & Ors. (1978) 1 SCC 405 : [1978] 2 SCR 272 –
referred to. G
Judicial Review of Administrative Action (1995) para
13.085, 601-605; Wade, Administrative Law (2009)
157-158, 306-308 – referred to.

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458 SUPREME COURT REPORTS [2018] 3 S.C.R.

A Case Law Reference
[1968] 3 SCR 556 referred to Para 11
[2003] 6 Suppl. SCR 1235 referred to Para 11
[1998] 3 Suppl. SCR 277 distinguished Para 17
B [1997] 3 Suppl. SCR 549 referred to Para 19
[1978] 2 SCR 272 referred to Para 20
CIVIL APPELLATE JURISDICTION: Civil Appeal No. 3020
of 2018.
C From the Judgment and Order dated 25.06.2013 by the High Court
of Judicature of Andhra Pradesh at Hyderabad in Writ Appeal No. 996
of 2011
WITH
C. A. Nos. 2995, 2994, 2996, 2997, 2998-3014, 2954-2989, 3015,
3016, 3018-3019, 2990, 3017, 2991, 2992 and 2993 of 2018.
D
Vikramjeet Banerjee, ASG, Basava Prabhu Patil,
K. V. Vishwanathan, Debal Banerji, A. T. M. Rangaramanujam, Sr.
Advs., Guntur Prabhakar, Guntur Pramod Kumar, Ms. Prerna Singh,
Ravi Kishore, Prashant Chaudhary, Chava Badri Nath Babu, C. M.
Angadi, V. R. Ayudu, Rameshwar Prasad Goyal, R. Santhnam Krishnan,
E Aditya Kr. A., Lokesh Sharma, Abdulla, C. S. N. Mohan Rao, Annam
D. N. Rao, A. Venkatesh, Sudipto Sircar, Rahul Mishra, Ms. Tulika
Chikker, R. Anand Padmanabhan, Romil Pathak, Ms. Ananya Mukherjee,
Akshay R., Shashi Bhushan Kumar, Gaurav Juneja, Shikhar Srivastava,
Sanjeev Kapoor, M/s. Khaitan & Co., Harish Beeran, Mushtaq Salim,
F Usman Ghani Khan, Dev Prakash, Radha Shyam Jena, Romy Chacko,
Ms. Meera Mathur, Ms. C. K. Sucharita, Sanjeev Kumar, H. K. Naik,
Rajnish, Venkateswara Rao Anumolu, Mohd. S. Haneef, Prabhakar
Parnam, P. Madhu Sudhan Reddy, Piyush Chaudhary, Aniruddha
P. Mayee, Ms. Anu Gupta, Gouri Karuna Das Mohanti, Pawan Kumar
Sharma, Rakesh Dahiya, H. K. Naik, Satya Mitra, Ajay Amrit Raj,
G Ms. Divya Swami, Nikhil Swami, Mrs. Prabha Swami, Vikas Singh
Jangra, Ms. Jennifer Rohita Xavier, Ms. S. Lakshmi, M. Srinivas R.
Rao, Arun Devdas, Mrs. Sudha Gupta, Sridhar Potaraju, Prabhat Kumar,
Ms. Sindoora VNL, Ms. Ankita Sharma, Ms. Praveena Gautam,
Ms. Manjula Gupta, Raj Bahadur, Ms. Shruti Agarwal, Ayush Anand,
H Shubendu Anand, Mrs. Anil Katiyar, Advs. for the appearing parties.
THE ANDHRA PRADESH INDUSTRIAL INFRASTRUCTURE 459
CORPORATION LTD. v. S. N. RAJ KUMAR

The Judgment of the Court was delivered by A
A. K. SIKRI, J. 1. Appellant No.1, Andhra Pradesh Industrial
Infrastructure Corporation Limited, is a public sector undertaking
incorporated under the Companies Act, 1956. Appellant Nos. 2 and 3
are its office bearers. The main object of the appellant-Corporation is to
develop industrial areas at various places in the State of Andhra Pradesh B
and allot them to the needy entrepreneurs for the purpose of establishing
industries.
2. During 1996-97, the appellant-Corporation allotted industrial
plots to the respondents/ entrepreneurs herein at Visakhapatnam and
other places in the State of Andhra Pradesh. All the respondents are C
transport companies with their headquarters all over India and they got
allotted the aforesaid plots in Visakhapatnam or other places in the State
with the purpose of having branch offices. Intention was to construct
transport offices and godowns. The allotment letters vide which
allotments were made by the appellant-Corporation contained certain
terms and conditions. One of the conditions, which is the bone of D
contention in these appeals, was that the respondents were supposed to
establish their units within two years from the date of taking possession
of their plots allotted to them for industrial purposes. It was also stipulated
that contravention of any of the terms and conditions of the allotment
would result in cancellation of such allotment. The relevant clauses E
signifying the aforesaid stipulation are worded as under:
“10. The allottee should note that the Corporation forfeits all
amounts paid by the allottee if any of the terms and conditions
stipulated in the allotment letter are not complied with by the
allottee. F
xx xx xx
17. You should implement the project envisaged within two years
of taking possession of the land/plot/shed. If within two years
from the date of final allotment and taking possession for the land/
plot/shed the project is not implemented, the allotment will be G
cancelled.
18. Registration of the sale deed will be made in your favour only
after implementation of the unit in the allotted plot/shed. An
undertaking on Rs.100/- NJS Paper to the effect that the allottee
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460 SUPREME COURT REPORTS [2018] 3 S.C.R.

A will take sale deed for the plot/shed/ land allotted within one month
of intimation from the APIIC Limited and to pay the penalties
levied by the Corporation in case of failure should be furnished in
the proforma enclosed.”
3. Though initial allotments were made by issuing allotment letters
B as above, these were followed by agreements of sale which were entered
between the appellant-Corporation and the respondents on different dates
between 1997 and 1999. During this period, sale deeds were also
executed by the appellant-Corporation in favour of the respondents, after
receiving full consideration of the plots in question, thereby transferring
the ownership rights in favour of the respondents herein. Almost six
C
years after the execution of the sale deed, show-cause notices were
issued to the respondents for cancellation of the plots on the ground that
the respondents had failed to establish their industrial units on the said
plots within the stipulated period and had kept them idle which was
detrimental to the industrial development. The respondents submitted
D their separate replies to these show-cause notices wherein, broadly
speaking, the position was taken that the appellant-Corporation did not
provide basic infrastructure facilities like roads, water, electricity and,
therefore, the plots could not be utilised for the purpose of construction
of godowns.
E 4. Interestingly, the aforesaid facilities were provided in the year
2006 only, i.e. after the issuance of show-cause notices and replies thereto
by the respondents. In these circumstances, the respondents applied for
permission to construct the godowns. Vide letter dated January 20, 2006,
the appellant-Corporation approved the building plans, in pursuance
whereof the respondents commenced construction. However, thereafter,
F the appellant-Corporation passed orders dated March 28, 2006 stating
therein that there was no justification for not establishing industrial/
business units within the time specified in the allotment letters and passed
orders cancelling the allotments made to the respondents. Challenging
these cancellation orders, batch of writ petitions came to be filed by the
G respondents. In these writ petitions, one of the primary contentions of
the respondents was that once sale deeds had been executed by the
appellant-Corporation resulting in conferring upon the respondents
absolute ownership of the plots in question, the appellant-Corporation
had no power to cancel the allotments.

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THE ANDHRA PRADESH INDUSTRIAL INFRASTRUCTURE 461
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5. While these writ petitions were pending, there was a change of A
heart, to a little extent, insofar as the appellant-Corporation is concerned.
It revised its decision of cancelling the allotments and instead decided to
give one more opportunity to the respondents herein, subject to certain
conditions. One of the conditions was that the respondents pay 50% of
the prevailing market value for condoning the delay in raising the
B
construction. Challenging this position, fresh writ petitions came to be
filed.
6. In the aforesaid scenario, it becomes clear that the issue before
the High Court was as to whether the appellant-Corporation can demand
50% of the prevailing market value as a condition for giving extension/
another opportunity to the respondents to raise construction on the plots C
sold to them.
7. The challenge of the respondents to the aforesaid condition
was predicated on the same ground, namely, after the execution of the
sale deed, the appellant-Corporation had no power to cancel the allotment
or demand payment of 50% of the prevailing market value. The D
appellant-Corporation, on the other hand, took up the plea that the
allotments were subject to certain terms and conditions made therein
and any contravention thereof was liable to be cancelled. Therefore,
mere execution of the sale deeds did not absolve the respondents from
compliance with the terms and conditions of the allotment. E
8. The matters were heard by the learned Single Judge who
allowed the writ petitions vide common judgment dated July 16, 2010
accepting the plea of the respondents, namely, once the sale deeds were
executed, the appellant-Corporation was denuded of any power to cancel
the allotments or to make demand of 50% amount of the prevailing market F
value of the plots. The appellant-Corporation, feeling aggrieved by the
said judgment, preferred writ appeals before the Division Bench, which
have also been dismissed vide the impugned judgment, thereby affirming
the judgment of the learned Single Judge. Not satisfied with this outcome,
the present appeals are preferred.
G
9. In nutshell, reasoning of the High Court is that the allotment
was made to the respondents followed by agreements of sale and
thereafter sale deeds were also executed by the appellant-Corporation
conveying right, title and interest absolutely, to the respondents. When

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462 SUPREME COURT REPORTS [2018] 3 S.C.R.

A the contract is concluded and regular sale deed is executed between the
vendor and vendee in respect of an immovable property, it cannot be
said that the dispute arises in the realm of a statutory contract or non-
statutory contract. The dispute is not with regard to the contract. It is in
effect the question of title which is sought to be nullified by the appellant-
Corporation unilaterally based on conditions of allotment and the same is
B
not permissible in law.
10. It was further held that the appellant-Corporation offered
industrial plots and the respondents/entrepreneurs gave counter offer
which was accepted by it. At that stage, the conditions of offer, counter
offer and acceptance found expression in the allotment letter (acceptance
C of offer subject to conditions) and in the agreement of sale (contract of
sale) in terms of Section 54 of the Transfer of Property Act, 1882
(hereinafter referred to as the Act). This ultimately resulted in the
conclusion of contract by way of execution of the sale deed by vendor in
favour of the vendee. Once the contract is concluded, the allotment
D conditions or covenants of agreement of sale ordinarily cannot be enforced
having regard to the various provisions of the Transfer of Property Act,
Indian Contract Act, 1872, the Registration Act, 1908 and the Specific
Relief Act, 1963, which constitute the Civil Code of India and govern the
transfer of immovable property from one person to another. The allotment
letter or the sale agreement does not survive once the contract is concluded
E on execution of the registered sale deed resulting in alienation,
conveyance, assignment and transfer of title.
11. The High Court has referred to Sections 5, 6, 8, 10 and 11 of
the Act as well as Section 23 of the Indian Contract Act, 1872 in
cementing the aforesaid conclusion. The High Court also relied upon
F Sections 4 and 55 of the Act. Support of the judgment of this Court in
the case of State of Kerala v. Cochin Chemical Refineries Ltd.1 and
two judgments of its own High Court was also taken. The matter was
looked into by the High Court from another angle as well. It noted that
in these cases, after the allotment was made, all the respondents paid
G entire sale considerations. The appellant-Corporation entered into
agreements and long thereafter executed registered sale deeds. A decade
thereafter, when the respondents applied for building permission, as a
statutory authority, accorded such sanction. In this background, the
question posed was whether the harsh action of cancelling allotment is
1
(1968) 3 SCR 556
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THE ANDHRA PRADESH INDUSTRIAL INFRASTRUCTURE 463
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proportionate to the situation. It gave the answer in the negative, applying A
the doctrine of proportionality as was applied in Teri Oat Estates (P)
Ltd. v. U.T., Chandigarh & Ors.2
12. Another dimension which has been highlighted by the High
Court is that though initially the decision was taken to cancel the allotment,
the appellant-Corporation on its own came forward and decided to B
compound the alleged contravention by a novel method and decided to
condone the so-called default on the part of the respondents by demanding
50% of the prevailing market value in lump sum towards the costs of the
plots. In the opinion of the High Court, once the sale deed is registered,
the seller has no such enforceable right to demand more money and this
demand was not backed by any law. We may also point out that the C
appellant-Corporation had relied upon the judgment of this Court in Indu
Kakkar v. Haryana State Industrial Development Corporation Ltd.
& Anr.3 The High Court, however, took the view that the aforesaid
judgment had no application to the facts of these cases at hand.
13. Before us, arguments of Mr. Basava Prabhu Patil, learned D
senior counsel appearing for the appellant-Corporation, remained the
same which were advanced before the High Court. It was contended
that even if there was a sale in favour of the respondents by execution
of the sale deed, the seller (appellant-Corporation) could impose a
condition in the said sale deed, which the buyer was under obligation to E
fulfill as sale was coupled with the said condition. It was argued that
judgment of this Court in Indu Kakkar’s case had decided the same
question, which was in favour of the appellant, and the High Court has
distinguished the said judgment on erroneous grounds. It was also argued
that the judgment of this Court in Teri Oat Estates (P) Ltd., on the
doctrine of proportionality, was wrongly applied by the High Court as F
the doctrine of proportionality was not at all applicable in these cases.
He also submitted that one of the conditions contained in the sale deed
itself was that the purchaser shall use the land for the purpose specified
therein, i.e. for putting up a factory or factories duly permitted by the
competent authority and for no other purpose and shall also not put any G
structure or buildings other than a factory building or buildings and some
of the respondents had violated this condition as the land was not used
for putting up a factory.
2
(2004) 2 SCC 130
3
(1999) 2 SCC 37
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464 SUPREME COURT REPORTS [2018] 3 S.C.R.

A 14. We do not find any merit in any of the aforesaid arguments.
In the first instance, it needs to be emphasised that there is no such
condition of completion of construction within a period of two years in
the sale deed. Such a condition was only in the allotment letter. However,
after the said allotment, the appellant-Corporation not only received
entire consideration but executed the sale deeds as well. In the sale
B
deeds no such condition was stipulated. Therefore, the High Court is
right in holding that after the sale of the property by the appellant-
Corporation to the respondents, whereby the respondents acquired
absolute marketable title to the property, the appellant-Corporation had
no right to insist on the conditions mentioned in the allotment letter, which
C cease to have any effect after the execution of the sale deed.
15. Section 5 of the Act defines ‘transfer’ as conveyance of
property from one living person to one or more living persons. Sections
8, 10 and 11 thereof attach sanctity and solemnity to a transfer of
immovable property. These provisions read as under:
D 8. Operation of transfer – Unless a different intention is
expressed or necessarily implied, a transfer of property passes
forthwith to the transferee all the interest which the transferor is
then capable of passing in the property and in the legal incidents
thereof.
E Such incidents include, when the property is land, the easements
annexed thereto, the rents and profits thereof accruing after the
transfer, and all things attached to the earth;
and, where the property is machinery attached to the earth, the
movable parts thereof; and, where the property is a house, the
F easements annexed thereto, the rent thereof accruing after the
transfer, and the locks, keys, bars, doors, windows, and all other
things provided for permanent use therewith;
and, where the property is a debt or other actionable claim, the
securities therefor (except where they are also for other debts or
G claims not transferred to the transferee), but not arrears of interest
accrued before the transfer;
and, where the property is money or other property yielding income,
the interest or income thereof accruing after the transfer takes
effect.
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THE ANDHRA PRADESH INDUSTRIAL INFRASTRUCTURE 465
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10. Condition restraining alienation – Where property is A
transferred subject to a condition or limitation absolutely restraining
the transferee or any person claiming under him from parting with
or disposing of his interest in the property, the condition or limitation
is void, except in the case of a lease where the condition is for the
benefit of the lessor or those claiming under him:
B
PROVIDED that property may be transferred to or for the benefit
of a women (not being a Hindu, Muhammadan or Buddhist), so
that she shall not have power during her marriage to transfer or
charge the same for her beneficial interest therein.
11. Restriction repugnant to interest created – Where, on a C
transfer of property, an interest therein is created absolutely in
favour of any person, but the terms of the transfer direct that
such interest shall be applied or enjoyed by him in a particular
manner, he shall be entitled to receive and dispose of such interest
as if there were no such direction.
D
Where any such direction has been made in respect of one piece
of immovable property for the purpose of securing the beneficial
enjoyment of another piece of such property, nothing in this section
shall be deemed to affect any right which the transferor may
have to enforce such direction or any remedy which he may have
in respect of a breach thereof.” E

16. Section 55 of the Act deals with rights and liabilities of buyer
and seller. As per this provision, when the buyer discharges obligations
and seller passes/conveys the ownership of the property, the contract is
concluded. Thereafter, the liabilities, obligations and rights, if any, between
the buyer and seller would be governed by other provisions of the Contract F
Act and the Specific Relief Act, on the execution of the sale deed. The
seller cannot unilaterally cancel the conveyance or sale.
17. Insofar as the judgment in Indu Kakkar’s case is concerned,
the High Court has rightly held that that would not apply to the facts of
this case. On the facts of that case, the Court, in the first instance, G
came to the conclusion that clause 7 of the agreement, which was entered
into between the parties, was binding. As per clause 7, construction of
the building for setting up the industry, in respect of which land was
given to the appellant in that case, was to start within a period of six
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466 SUPREME COURT REPORTS [2018] 3 S.C.R.

A months and the construction had to be completed with two years from
the date of issue of the allotment letters. Since the appellant had failed
to commence or build the construction within the stipulated time, show-
cause notice has been issued as to why the plot be not resumed as per
clause 7 of the agreement. In this backdrop, the appellant had challenged
the enforceability of clause 7 of the agreement taking aid of Section 11
B
of the Act. This contention was repelled in the following manner:
“16. However, the allottee has contended before the trial court
that clause 7 of the agreement is unenforceable in view of Section
11 of the TP Act. But that contention was repelled, according to
us, rightly because the deed of conveyance had not created any
C absolute interest in favour of the allottee in respect of the plot
conveyed. For a transferee to deal with interest in the property
transferred “as if there were no such direction” regarding the
particular manner of enjoyment of the property, the instrument of
transfer should evidence that an absolute interest in favour of the
D transferee has been created. This is clearly discernible from Section
11 of the TP Act. The section rests on a principle that any condition
which is repugnant to the interest created is void and when property
is transferred absolutely, it must be done with all its legal incidents.
That apart, Section 31 of the TP Act is enough to meet the aforesaid
contention. The section provides that
E
“on a transfer of property an interest therein may be created
with the condition super-added that it shall cease to exist in
case a specified uncertain event shall happen, or in case a
specified uncertain event shall not happen”.

F Illustration (b) to the section makes the position clear, and it reads:
“(b) A transfers a farm to B, provided that, if B shall not go to
England within three years after the date of the transfer, his
interest in the farm shall cease. B does not go to England within
the term prescribed. His interest in the farm ceases.”
G 17. All that Section 32 of the Transfer of Property Act provides is
that “in order that a condition that an interest shall cease to exist
may be valid, it is necessary, that the event to which it relates be
one which could legally constitute the condition of the creation of
an interest”. If the condition is invalid, it cannot be set up as a
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THE ANDHRA PRADESH INDUSTRIAL INFRASTRUCTURE 467
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condition precedent for crystallization of the interest created. The A
condition that the industrial unit shall be established within a
specified period failing which the interest shall cease, is a valid
condition. Clause 7 of the agreement between the parties is,
therefore, valid and is binding on the parties thereto.”
18. This legal position is not disputed. However, in the instant B
case, there was no such stipulation in the agreement to sell or the sale
deed. It was in the allotment letter. On the contrary, insofar as clause 7
of the sale deeds executed is concerned, the only condition imposed is
that the purchaser shall use the land for the purpose of putting up a
factory or factories duly permitted by the competent authority and for
no other purpose. This makes all the difference between the two cases. C
Here, the undisputed fact is that the agreements/sale deeds entered into
between the appellant-Corporation and the respondents do not contain
any clause which can be construed as ‘condition super-added’.
19. We do not agree with the contention of the appellant-
Corporation that the doctrine of proportionality is not applicable in these D
cases. In the realm of Administrative Law ‘proportionality’ is a principle
where the Court is concerned with the process, method or manner in
which the decision-maker has ordered his priorities and reached a
conclusion or arrived at a decision. The very essence of decision-making
consists in the attribution of relative importance to the factors and E
considerations in the case. The doctrine of proportionality thus steps in
focus true nature of exercise – the elaboration of a rule of permissible
priorities 4. De Smith 5 also states that ‘proportionality’ involves
‘balancing test’ and ‘necessity test’. The ‘balancing test’ permits
scrutiny of excessive onerous penalties or infringement of rights or
interests and a manifest imbalance of relevant considerations. F

20. Insofar as the argument that the land is not used for putting a
factory building but was used for some other purpose is concerned, no
such case was pleaded by the appellant-Corporation in the High Court
or even in these appeals. This was not the reason for initially cancelling
the allotment or demanding payment of 50% of the prevailing market G
value. Therefore, this oral argument advanced at the time of hearing
cannot be accepted without any material on record and when it was not
4
Union of India v. G. Ganayutham, (1997) 7 SCC 463
5
Judicial Review of Administrative Action (1995) para 13.085, 601-605; see also, Wade,
Administrative Law (2009) 157-158, 306-308 H
468 SUPREME COURT REPORTS [2018] 3 S.C.R.

A the basis of cancellation/demand of payment. This Court in the case of
Mohinder Singh Gill & Anr. v. The Chief Election Commissioner,
New Delhi & Ors.6 held as under:
“8. The second equally relevant matter is that when a statutory
functionary makes an order based on certain grounds, its validity
B must be judged by the reasons so mentioned and cannot be
supplemented by fresh reasons in the shape of affidavit or
otherwise. Otherwise, an order bad in the beginning may, by the
time it comes to Court on account of a challenge, get validated by
additional grounds later brought out. We may here draw attention
to the observations of Bose, J. in Gordhandas Bhanji
C (Commissioner of Police, Bombay v. Gordhandas Bhanji, AIR
1952 SC 16):
“Public orders, publicly made, in exercise of a statutory
authority cannot be construed in the light of explanations
subsequently given by the officer making the order of what he
D meant, or of what was in his mind, or what he intended to do.
Public orders made by public authorities are meant to have
public effect and are intended to affect the actings and conduct
of those to whom they are addressed and must be construed
objectively with reference to the language used in the order
E itself.”
Orders are not like old wine becoming better as they grow older.”
21. In view of the above, it is not necessary to deal with the
argument as to whether doctrine of proportionality is applicable in the
instant case or not. It is to be borne in mind, as rightly held by the High
F Court, that the appellant-Corporation had withdrawn the action of
cancellation of the plots. Instead, it demanded 50% of the prevailing
market value in lump sum towards the cost of the plots. There is no
legal basis for such a demand, more so, after the registration of the sale
deeds in favour of the respondents thereby transferring the ownership in
G these plots in their favour.
22. As a result, all these appeals are dismissed with costs.

Nidhi Jain Appeals dismissed.

6
H (1978) 1 SCC 405