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  • clause (h) of Sec. 21(1) of the U.P Zamindari Abolitios and Land Reforms Act (hereinafter called the Act).
  • Sec. 21(1)(h).(2) For the purposes of Sec. 21(1)(h) of the U.P Zamindari Abolition and Land Reforms Act
  • vesting.(3) Section 21(1)(h) of the U.P Zamindari Abolition and Land Reforms Act
  • sub-sec. (1) of Sec. 157 of the U.P Zamindari Abolition and Land Reforms Act
  • U.P Zamindari Abolition and Land Reforms Act (U.P Act XVI of 1953)
  • Sec. 21(1)(h) of the U.P Zamindari Abolition and Land Reforms Act
  • U.P Zamindari Abolition and Land Reforms Act
  • Sec. 29(6) of the Agra Tenancy Act 1926
  • Sec. 41 of the U.P Tenancy Act, 1939
  • Sec. 4(4) of the U.P Tenancy Act
  • U.P Act XX of 1954.
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  • clause (h) of Sec. 21(1) of the U.P Zamindari Abolitios and Land Reforms Act (hereinafter called the Act).
  • Sec. 21(1)(h).(2) For the purposes of Sec. 21(1)(h) of the U.P Zamindari Abolition and Land Reforms Act
  • vesting.(3) Section 21(1)(h) of the U.P Zamindari Abolition and Land Reforms Act
  • sub-sec. (1) of Sec. 157 of the U.P Zamindari Abolition and Land Reforms Act
  • U.P Zamindari Abolition and Land Reforms Act (U.P Act XVI of 1953)
  • Sec. 21(1)(h) of the U.P Zamindari Abolition and Land Reforms Act
  • U.P Zamindari Abolition and Land Reforms Act
  • Sec. 29(6) of the Agra Tenancy Act 1926
  • Sec. 41 of the U.P Tenancy Act, 1939
  • Sec. 4(4) of the U.P Tenancy Act
  • U.P Act XX of 1954.
Smart Summary

Structured Summary of the Legal Opinion (Shukla, J.)

Factual and Procedural Background

The disputed plots originally belonged to Bijain and passed to his widow Smt. Lakshmi on his death. On Lakshmi's death her minor unmarried daughter Kumari Maya became the land-holder. Maya's elder sister Saheb Kunwar, acting as guardian, executed a registered lease of the plots in favour of the plaintiffs (Ram Charan and others) on 15-10-1947 for five years. Later Maya married Thakur Das who was admitted as co-tenant with Maya with the consent of the Zamindar in 1948. Thus, on the date of vesting both Maya (still a minor and described as a disabled person) and Thakur Das were the land-holders.

The lessee plaintiffs filed suit in 1954 seeking a declaration that they had become adhivasis on the coming into force of the U.P. Zamindari Abolition and Land Reforms Act and had acquired sirdari rights under U.P. Act XX of 1954. The suit was decreed by the courts below. A learned single Judge considered that two Division Bench decisions (Dularey v. Rajeshwari and Hasina Bibi v. Ram Din) required reconsideration, referred the matter to a larger Bench, and the larger Bench posed the specific questions reproduced below for decision by this Court. The opinion proceeds on the facts accepted by the learned single Judge and answers the referred questions.

Legal Issues Presented

  1. Whether in the circumstances of this case and on the facts stated above Ram Charan and other plaintiffs became adhivasis or asamis of the plots in dispute?
  2. For the purposes of Sec. 21(1)(h) of the U.P. Zamindari Abolition and Land Reforms Act, whose disability has to be seen?
  3. Does Sec. 21(1)(h) of the U.P. Zamindari Abolition and Land Reforms Act apply to a tenant, sub-tenant or occupant as the case may be, where the land-holder did not belong to any one or more of the classes mentioned in sub-sec. (1) of Sec. 157 of the Act on the date of vesting but belonged to such class or classes both on the date of letting or occupation and on the 9th of April, 1946?
  4. For the purposes of Sec. 21(1)(h) of the U.P. Zamindari Abolition and Land Reforms Act is the land-holder the person who was the land-holder immediately preceding the date of vesting or a person who was the land-holder on the material dates?

Arguments of the Parties

Appellant's Arguments

  • The appellant contended that, on a plain reading of the amended Sec. 21(1)(h) (as amended by U.P. Act XX of 1954), the disability of the land-holder on the date of vesting is not a relevant consideration because the Legislature omitted the prior reference to the date immediately preceding vesting.
  • The appellant argued that the correct focus is on the disability of the land-holder on the “material dates”: if the land was let prior to 9 April 1946, then on the date of letting and on 9 April 1946; if let on or after 9 April 1946, then on the date of letting or occupation. The continuation of disability up to the date of vesting was said to be unnecessary.
  • The appellant relied on the mischief rule (Heydon's case) as approved in Kochuni v. States of Madras and Kerala, and urged a purposive interpretation to preserve the benefit to disabled land-holders who let out their land even if original land-holders did not survive until vesting.
  • The appellant also urged the rule of benevolent (liberal) construction applicable to beneficial legislation to favour an interpretation that would conserve the intended benefit to disabled lessors; proposing textual modification (e.g., inserting “or their predecessors in interest”) to achieve that construction.

Respondent's Arguments

  • The respondent maintained that Sec. 21(1)(h) confers a personal protection on the disabled land-holder who lets out land; consequently the identity of the land-holder must remain the same and the land-holder on the date of vesting must be the same person who let out the land and suffered the disability at the time of letting.
  • It was common ground that the disability of the land-holder who let out the land must be considered. The disagreement narrowed to whether the land-holder on the date of vesting must be identical to that original land-holder.
  • The respondent conceded that it was not necessary that disability continue on the date of vesting, but insisted that the person who was land-holder at vesting must be the same individual who had been the disabled land-holder at letting (or on 9 April 1946 where relevant).

Table of Precedents Cited

Precedent Rule or Principle Cited For Application by the Court
Dularey v. Rajeshwari, 1966 A.L.J. 199 Interpreting Sec. 21(1)(h): identity of land-holder on date of vesting and on material dates; the land-holder on vesting must be the person who originally let out the land and belonged to the relevant disabled class on material dates. The Court treated Dularey's case as supporting the proposition that the identity of the original land-holder must remain unchanged for Sec. 21(1)(h) to operate; it found Dularey consistent with its interpretation and relied on its ratio in answering the referred questions.
Hasina Bibi v. Ram Din, 1967 A.L.J. 27 Clarified that the land-holder on the date of vesting is relevant to identify whether the person entitled to benefit under Sec. 21(1)(h) is the same who let out the land; stressed accrual of rights on date of vesting. The Court analysed Hasina Bibi and concluded that its body supports the view that the vesting-date land-holder is relevant only as an identifier to see if he is the very person who let out the land as disabled; the Court held the headnote might be cryptic but the case does not conflict with the adopted interpretation.
Kochuni v. States of Madras and Kerala, A.I.R. 1960 S.C. 1080 Approval of the mischief rule (Heydon's case) for statutory interpretation — consider law before Act, mischief, remedy, and reason for remedy. The appellant relied on this case to support a purposive/mischief-based approach; the Court acknowledged the rule but emphasized language of the statute where words are plain and unambiguous.
Mahadeolal Kanodia v. Administrator-General of West Bengal, A.I.R. 1960 S.C. 936 Principle on benevolent construction: applicable only where statute is ambiguous and two reasonable constructions exist. The Court cited this authority to reject the appellant's plea for benevolent construction because the Court found the statutory language plain and unambiguous, so liberal construction was not justified.
Madhya Pradesh Mineral Industry Assn. v. The Regional Labour Commissioner, A.I.R. 1960 S.C. 1068 Similar support for the limits of benevolent construction; two constructions must be reasonably possible for preference to be given to one that preserves a benefit. Cited to reinforce that benevolent construction cannot be used where the statute's language admits only one meaning; Court relied on this to resist re-writing the statute.
Sussex Peerage (quoted) If words of a statute are precise and unambiguous they should be expounded in their natural and ordinary sense. The Court invoked this principle to justify adhering to the plain grammatical meaning of Sec. 21(1)(h) rather than adopting a construction driven by perceived legislative purpose.
Rannanjaya Singh v. Baijnath Singh, A.I.R. 1954 S.C. 740 Warning that the spirit of the law is an elusive and unsafe guide; courts should not give effect to supposed spirit in opposition to plain statutory language. Used to support the proposition that the Court must follow clear statutory language even if a different "spirit" or alleged purpose might suggest another outcome.
Kanilal v. Parmanidhi, A.I.R. 1957 S.C. 907 Where words used in statute are capable of one construction only, courts cannot adopt a hypothetical construction consistent with alleged object/policy. Cited to underline that no alternative construction can be adopted where the statute is plain; Court relied upon it to refuse the appellant's suggested textual modifications.
M. V. Joshi v. M. U. Shimpi, A.I.R. 1961 S.C. 1494 Primary test of interpretation is the language employed; clear words must be accepted as expressing legislative intent. Referred to support the Court's central methodology: accept the clear, grammatical meaning of Sec. 21(1)(h).
Martin Burn Ltd. v. Calcutta Corporation, A.I.R. 1966 S.C. 529 Courts must give effect to statutory provisions even if the result seems harsh; courts cannot ignore statute because of perceived distress from its operation. Cited to reject the appellant's hardship arguments and to stress that perceived unfairness cannot override plain statutory language.
Commissioner of Agricultural Income Tax v. Keshab Chand, A.I.R. 1950 S.C. 265 Hardship or inconvenience cannot alter the meaning of clear statutory language. Invoked to support the view that the Court should not depart from the statute’s clear meaning because of hardship concerns.
Bengal Immunity Co. v. State of Bihar, A.I.R. 1955 S.C. 661 Courts should not discard cardinal rules of interpretation to mitigate hardship; legislative reform is the proper avenue for change. Used to emphasize that legislative amendment, not judicial reinterpretation, is the remedy for any perceived inequity in the statute.
Emperor v. Benoari Lal, A.I.R. 1945 P.C. 48 Judicial construction should not be driven by policy or result consideration but by enacted words. Quoted to buttress the Court's insistence on construing statutes according to their enacted words rather than policy preferences.

Court's Reasoning and Analysis

The Court began by setting out the text of Sec. 21(1)(h) as originally enacted and as amended by U.P. Act XX of 1954. The 1954 amendment removed the phrase referring to the land-holder's disability “on the date immediately preceding the date of vesting.” The appellant urged that this deletion meant disability on the date of vesting was irrelevant and that the focus should be only on disability on the material dates (date of letting and, where relevant, 9 April 1946).

The Court examined the Division Bench precedents (Hasina Bibi and Dularey) to ascertain their true ratio. It concluded that those authorities did not support the appellant's expansive reading. Instead, they established that:

  • The identity of the land-holder on the date of vesting is relevant as an identifying tool to determine whether the person entitled to benefit under Sec. 21(1)(h) is the same individual who originally let the land as a disabled person.
  • The protection in Sec. 21(1)(h) is essentially personal — it attaches to the person who was the disabled land-holder on the material dates and who continued to be the land-holder immediately preceding vesting.
  • Where the identity of the land-holder changes and a new body of land-holders comes into existence (so that not all of them are the original disabled lessors), the protection does not automatically transfer to that fresh set of land-holders.

The Court then turned to principles of statutory interpretation. It reviewed authorities on the mischief rule, benevolent construction, and the primacy of plain grammatical meaning. While acknowledging the availability of purposive interpretation and the mischief rule where appropriate, the Court stressed that these tools do not permit departure from clear and unambiguous language. The Court repeatedly emphasized that Sec. 21(1)(h) contains plain words — notably the present tense “are” together with “were” — which, in their grammatical sequence, indicate the Legislature intended that the land-holder on the date immediately preceding vesting be the same person (or persons) who had been the disabled land-holder on the material dates.

The Court examined the appellant's contention that the 1954 amendment demonstrated legislative intent to ignore vesting-date identity; it rejected this. The Court held that the amendment removed the requirement of disability on the date immediately preceding vesting but did not alter the requirement that the identity of the land-holder who let the land remain the same up to the date immediately preceding vesting. The Court found no necessity to read into the section words like “or their predecessors in interest” or to otherwise modify the statutory text.

The Court also surveyed the historical tenancy provisions (Agra Tenancy Act 1926; U.P. Tenancy Act 1939) and noted that previously the protection for disabled lessors had consistently been personal, ceasing with the death or change of the lessor. This historical context reinforced the Court's interpretation that Sec. 21(1)(h) confers a personal protection on the particular disabled land-holder who let out the land and who remained the land-holder immediately preceding vesting.

Applying these principles to the facts assumed in the reference, the Court concluded that because on the date of vesting there were two land-holders (Maya and her husband Thakur Das), a new body of land-holders had come into existence and not all of them were the original disabled lessor(s). Therefore the plaintiffs became adhivasis and the defendants were not entitled to the benefit of Sec. 21(1)(h).

Holding and Implications

Holding: The Court answered the referred questions as follows (summarized from the opinion):

  • On the facts assumed: Because two land-holders existed on the date of vesting (Maya and Thakur Das) and not all of them were the original disabled lessor(s), the plaintiffs (lessees) became adhivasis and the defendants were not entitled to the benefit of Sec. 21(1)(h).
  • Whose disability is to be seen: For Sec. 21(1)(h), the disability of the land-holder who let out the land on the material dates must be considered, and that person must have continued to be the land-holder on the date immediately preceding vesting (though the disability might have ceased on or before vesting).
  • Application where land-holder did not belong to relevant class on vesting: Sec. 21(1)(h) applies where the land-holder did not belong to the relevant classes on the date of vesting but had belonged to such class(es) on the date of letting/occupation and on 9 April 1946, provided he continued to be the land-holder on the date immediately preceding vesting.
  • Definition of "land-holder": For Sec. 21(1)(h) the “land-holder” is the person who was the land-holder on the material dates and who continued to be the land-holder on the date immediately preceding vesting.

Implications: The direct effect of the decision is to deny Sec. 21(1)(h) protection to persons who were not the same individual (or same set of individuals) who had let out the land as disabled lessors on the material dates and who did not continue as land-holder immediately preceding vesting. The Court affirmed the reasoning of the earlier Division Bench decisions (Dularey and Hasina Bibi) rather than overruling them; the opinion treats those authorities as consistent with the adopted interpretation. The opinion does not purport to create a novel precedent beyond confirming and applying established authorities and statutory construction principles; it resolves the referred questions and returns the case papers to the referring Judge for further disposal consistent with these answers.

Questions answered; papers to be returned to the learned single Judge who made the reference.

    Smt. Maya v. Raja Dulajji And Others

    Shukla, J.:— This appeal was originally heard by a learned single Judge who felt that the two division Bench decisions of this Court, namely Dularey v. Rajeshwari 1966 A.L.J 199. and Hasina Bibi v. Ram Din 1967 A.L.J 27. required reconsideration. He, therefore, referred the case to a larger Bench which endorsed his opinion and referred the following points to us for decision:—

    1. Whether in the circumstances of this case and on the facts stated above Ram Charan and other plaintiffs became adhivasis or asamis of the plots in dispute?

    2. For the purposes of Sec. 21(1)(h) of the U.P Zamindari Abolition and Land Reforms Act, whose disability has to be seen?

    3. Does Sec. 21(1)(h) of the U.P Zamindari Abolition and Land Reforms Act apply to a tenant, sub-tenant or occupant as the case may be, where the landholder did not belong to any one or more of the classes mentioned in sub-sec. (1) of Sec. 157 of the U.P Zamindari Abolition and Land Reforms Act on the date of vesting but belonged to such class or classes both on the date of letting or occupation and on the 9th of April, 1946?

    4. For the purposes of Sec. 21(1)(h) of the U.P Zamindari Abolition and Land Reforms Act is the land-holder the person who was the land-holder immediately preceding the date of vesting or a person who was the land-holder on the material dates?

    2. We proceed to deal with this case on the basis of the facts which were accepted by the learned single Judge, who posed the above questions. The disputed plots belonged to one Bijain and were inherited on his death by his widow Smt. Lakshmi. When she died her minor unmarried daughter Kumari Maya became the land-holder. Her elder sister Saheb Kunwar acting as her guardian executed a registered lease of the plots in favour of the plaintiffs, Ram Charan etc., on 15-10-1947 for a period of five years. Later on Maya was also married to her sister's husband, Thakur Das, who was admitted to the holding as co-tenant with Maya, with the consent of the Zamindar in the year 1948. Thus on the date of vesting both Maya (who was still a minor and disabled person) as well as her husband, Thakur Das were the land-holders of the plots in question. The present suit was filed by the lessee plaintiffs in the year 1954 for a declaration that they had become adhivasis of the land on the coming into force of the U.P Zamindari Abolition and Land Reforms Act and had subsequently acquired sirdari rights on the passing of U.P Act XX of 1954. The question, therefore, arose as to the interpretation to be put on clause (h) of Sec. 21(1) of the U.P Zamindari Abolitios and Land Reforms Act (hereinafter called the Act). The suit was decreed by both the Courts below and hence Maya defendant preferred a second appeal to this Court. The success of the plaintiffs' claim depends upon whether for the purposes of Sec. 21(1)(h) this disability of the land-holders who are inexistence on the date of vesting is material or the disability of the land holders who let out the land is the deciding factor. Sec. 21(1)(h) of the Act (U.P Act No. 1 of 1951) was for the first time introduced in the U.P Zamindari Abolition and Land Reforms Act (U.P Act XVI of 1953) and was later on amended by U.P Act XX of 1954 and has thereafter continued in its present form. Sec. 21(1)(h) as originally enacted ran as under:—

    “(h) a tenant of sir of land referred to in sub-clause (a) of clause (1) of the explanation under Sec. 16, a sub-tenant or an occupant referred to in Sec, 20, where the land holder or if there are more than one land-holder, all of them were person or persons belonging, both on the date of letting and on the date immediately preceding the date of vesting, to any one or more of the classes mentioned in sub-sec. (2) of Sec. 10 or clause (8) of sub-sec. (1) of Sec. 157”. (Italicising are ours).

    3. The section in its present form as amended by Act XX of 1954 reads as follows:—

    “(h) a tenant of sir of land referred to in sub-clause (a) of clause (i) of the explanation under Sec. 16, a sub-tenant referred, to in sub-clause (ii) of clause (a) of Sec. 20 or an occupant referred to in sub-clause (i) of clause (b) of the said section where the land-holder or if there are more than one land holder, all of them were person or persons belonging—

    (a) if the land was let out or occupied prior to the ninth day of April, 1946, both on the date of letting or occupation as the case may be and on the ninth day of April, 1946, and

    (b) if the land was let out or occupied after the ninth day of April, 1946, on the date of letting or occupation,

    to any one or more of the classes mentioned in sub-sec. (1) of Sec. 157.”

    4. By the amending Act the words “both on the date of letting and on the date immediately preceding the date of vesting” were omitted. In the 1953 enactment it was provided that the land-holder should be a disabled person on the date of letting and on the date immediately preceding the date of vesting. By the amending Act of 1954 the words referring to the disability of the land-holder on the date immediately preceding the date of vesting were dropped.

    5. It was contended on behalf of the appellant that on a plain reading of the amended Sec. 21(1)(h) the disability of the land-holder or land holders, if there are more than one on the date of vesting, is not a relevant consideration at all. It was strenuously pressed that when the Legislature omitted the reference to the date of vesting by passing Act XX of 1954, it would be futile to consider the disability of the landholder on the date of vesting as well. To do so, it was urged, would be to interpret the section against the intention of the Legislature, because by omitting a reference to the date of vesting the Legislature clearly did away with the necessity of enquiring about the disability of the landholder on the date of vesting. It was suggested that if the section was interpreted keeping in view the intention of the amending Act it would be manifest that for the purposes of Sec. 21(1)(h) of the Act what had to be looked into was the disability of the land-holder or land-holders only on the ‘material dates’, i.e, if the land was let out or occupied prior to 9th April, 1946, both on the date of letting or occupation, as the case may be, and on the 9th April, 1946, but if the land was let out or occupied on or after the 9th April, 1946, then on the date of letting or occupation. The mere fact that on the date of vesting the land-holder or land-holders or his successors-in-interest were not disabled persons would not confer adhivasi rights, but on the contrary, the sub-tenants or the occupants would become asamis. The learned counsel for the appellant relied on the rule of interpretation of statutes, known as the mischief rule, as enunciated in Heydon's case. The Supreme Court approved of the said rule in Kochuni v. States of Madras and Kerala A.I.R 1960 Supreme Court 1080.. To have a correct appreciation of the scope of the amended provisions of any statute, Subba Rao, J. observed (in para. 23) that it was necessary to consider, in the words of Lord Coke, the following circumstances;—

    (i) What was the law before the Act was passed;

    (ii) What was the mischief or defect for which the law had not provide;

    (iii) What remedy Parliament has appointed; and

    (iv) the reason of the remedy.

    6. It was argued that to insist on examining the disability of the land-holder both in the date of letting and the date of vesting would be to defeat the very intention of the Legislature in amending the section. It was submitted that the two division Bench cases decided by this Court namely Dularey v. Rajeshwari and Hasina Bibi v. Ram Din did not correctly interpret the section and lost sight of the object with which Sec. 21(1)(h) was amended by U.P Act XX of 1954.

    7. The contention of the respondent, in short, was that Sec. 21(1)(h) intended to confer a personal protection on the disabled land-holder letting out his or her land. It was, therefore, essential that the identity of the land-holder must not change and the land-holder on the date of vesting must be the very landholder who let out the land and at the time of letting suffered from any of the disabilities mentioned in Sec. 157 of the Act. Since the rights of a sub-tenant or occupant etc. accrue on the date of vesting, that date cannot be ignored but it has to be ascertained whether the land-holder or land-holders on the date of vesting is or are the same, who let out the land and who suffered from any of the aforesaid disabilities at the time of letting. Thus, it is the common case of the parties that the disability of the land-holder letting out the land has to be taken into account. According to the defendant-appellant the right conferred by Sec. 21(1)(h) subsists in favour of the land-holder or land-holders existing on the date of vesting (who may be different from the original land-holder or land-holders letting out the land); while according to the learned counsel for the plaintiff-respondent the land-holder or land-holders on the date of letting and on the date of vesting must be the same. Therefore, the limited area of divergence between the two contentions is as to the identity of the land-holder or landholders on the date of vesting.

    8. There is yet another common ground between the parties. As already observed by us, the appellant's counsel underlined the effect of the amending Act XX of 1954 and referred to the intention of the Legislature in deleting the words “both on the date of letting and on the date of immediately preceding the date of vesting;” It was suggested that the plain intention of the Legislature in omitting the aforesaid words was not to make it obligatory that the land-holder must be a disabled person on the date immediately preceding the date of vesting as well. It was conceded by the learned counsel for the respondent that it was not necessary that the land-holder must be a disabled person on the date of vesting. In other words, even though, the disability might cease on the date of vesting, the benefit of Sec. 21(1)(h) would still accrue to the land-holder, provided he was a disabled person on the “material dates” and he continued to be the land-holder (notwithstanding the cessation of disability) on the date immediately preceding the date of vesting.

    9. Before examining the merits of the respective contentions of the parties it is necessary to appreciate precisely the ratio of the two division Bench cases which have given rise to this reference.

    10. The counsel for the respondent placed strong reliance on Hasina Bibi v. Ram Din which interpreted the earlier decision of this Court in Dularey v. Rajeshwari. On a close scrutiny, Hasina Bibi's case appears to have laid down the following propositions—

    (i) that for the purposes of Sec. 21(1)(h) of the Act in the land-holder on the date of vesting has to be taken into consideration because it is the crucial date on which the rights of the sub-tenant or the occupant accrue;

    (ii) that the aforesaid land-holder i.e land-holder on the date of vesting, is the very person or persons who was or were the land-holder of land-holders on the relevant dates i.e the date of letting and the 9th April, 1946 (where the land was sub-let before the last mentioned date).

    (iii) that Sec. 21(1)(h) of the Act applies to a tenant, sub-tenant or occupant, as the case may be, whether the land-holder belonged to one or more classes mentioned in sub-sec. (1) of Sec. 157 of the U.P Zamindari Abolition and Land Reforms Act both on the date of letting or occupation and on the 9th of April, 1946.

    11. Thus, it is clear that Hasina Bibi's case is not an authority for the proposition that the land-holder must belong on the date of vesting to one or more of the classes mentioned in sub-sec. (1) of Sec. 157 of the U.P Zamindari Abolition and Land Reforms Act. The amending Act XX of 1954 left no doubt about the proposition that the disability of the land-holder need not exist on the date immediately preceding the date of vesting. The relevance of the land-holder on the date of vesting is merely for the twin purposes of ascertaining who the land-holder was on the date when the rights of the sub-tenant or occupant etc. came into existence and whether that land-holder was the very person who let out the land as a disabled person. The first head note in Hasina Bibi's case is apt to be a trifle misleading on account of being cryptic. The body of the case reveals beyond doubt that the disability of the land-holder on the date of vesting is otherwise irrelevant. The only utility of ascertaining the land-holder on the date of vesting is to find out whether he can be identified with the land-holder who let out the land as a disabled person. In other words, it is only for an ancillary purpose that the land-holder on the date of vesting becomes relevant, the crucial land-holder is the person who was a land-holder on the relevant dates i.e the date of letting and the 9th April, 1946 (in a case where the letting was before 9th April, 1946). It appears that in Hasina Bibi's case the land was let out before 9th April, 1946. Thus, the effect of Hasina Bibi's case is that the identity of the land-holder who let out the land must remain unchanged even on the date of vesting.

    12. There is nothing in Dularey's case which militates against the above proposition. In that case the land was let out in 1945 i.e before the 9th April, 1946 by two persons jointly namely Phulbasa, who was a widowed disabled person and her sister Bitto whose husband was alive and was not disabled. The joint holding was partitioned between Phulbasa and Bitto in 1948 and the land in dispute fell in the share of Phulbasa and since then according to the finding recorded by the revenue courts Phulbasa was the only land-holder and she alone was the land-holder on the date of the vesting. Another finding of fact recorded in the case was that by a private arrangement; Phulbasa had been doing all the work of letting out land, collecting rents, filing suits etc. She was at all times and for all practical purposes the sole land holder, even though ostensibly there were two land-holders originally. In these circumstances it was held that Phulbasa the sole land-holder on the date of vesting was the person who had let out the land and who belonged to a class mentioned in Sec. 157(1) both on the date of letting and on the 9th day of April, 1946. Thus, the identity of the land-holder did not change and the person who claimed the benefit of Sec. 21(1)(h) as a result of the consequences ensuing on the date of vesting was the very person who had originally let out the land and who belonged to a class mentioned in Sec. 157(1) on the material dates i.e on the date of letting or occupation and on the 9th April, 1946. On the facts of that case it was correctly found that the identity of the sole land-holder on the date of vesting remained the same as that of the land-holder, letting out the land. The other land-holder namely Bitto who joined in letting was rightly excluded from consideration, inasmuch as she had ceased to be the land-holder since the partition of 1948 and was not really the person whose rights as land-holder on the date of vesting were to be determined as a result of the status of the sole land-holder, namely Phulbasa it was held that the sub-tenant became an asami under Sec. 21(1)(h). It was a case in which the original letting was done partly by a disabled person and partly by a non disabled person but the claimant on the basis of the rights according on the date of vesting under Sec. 21(1)(h) was the person who belonged to a class mentioned in Sec. 157(1) both on the date of letting and on the 9th April, 1946. The fac that one of the land-holders who had originally let out had disappeared was regarded as of no consequence. In other words, the decision in Dularey's cast also postulated three things:—

    (i) that certain consequences arose directly on the vesting of the estates of intermediaries in the State and one of them is the situation contemplated in Sec. 21(1)(h) i.e the sub-tenant or the occupant acquired certain asami rights of account of the vesting and with effect from the date of vesting. Hence, the firs fact which has to be considered in such cases is as to who was the land-holder of the date of vesting.

    (ii) that the said land-holder was the very person who had originally let out the land.

    (iii) that the said land-holder was a person belonging to a class mentioned in Sec. 157(1) on the date of letting and on the 9th day of April, 1946.

    13. In Dularey's case the land-holder on the date of vesting acquire significance merely on account of the fact that all the land-holders who had let out the land did not survive until the date of vesting. The benefit of Sec. 21(1)(h) was, however, given only to the land-holder whose rights were entitled to be considered on the date of vesting, i.e who also satisfied the condition of being the very land holder who was a disabled person when she let out the land and whose disability continued on the 9th April, 1946. The argument that what has to be considered was as to how many persons were land-holders at the time of vesting was rejected. In other words, the accrual of the benefit of Sec. 21(1)(h) was held to depend not on the disability of the land-holder on the date of vesting but on two factors only, namely the identity of the original land-holder remaining the same and his disability existing on the date of letting or occupation and on the 9th April, 1946. The land-holder on the date of vesting, even though; disabled person on that date, would be disentitled to the advantage of Sec. 21(1)(h), if he was not also a disabled land-holder who let out the land and whose disability continued on the 9th April, 1946.

    14. Thus, there is really no conflict between the two Division Bench case discussed above. We are inclined to agree with the view expressed therein am do not think that they require reconsideration. Those decisions, in our view are sound and borne out by the language of the statute.

    15. It was vehemently argued on behalf of the appellant that the aim of the amending Act of 1954 was to confer benefit on a certain class of persons, namely the disabled land-holders who let out their land and, therefore, the words of the statute should be so construed as to retain that benefit, even though the original land-holders who had let out the land might have disappeared on the date of vesting. To put a contrary construction on the words of the section would be, according to the appellant, to defeat the object of the Legislature. No material was placed before us to indicate the precise aim and object of the Legislature. We were merely asked to speculate on the supposed objectives of the Legislature so as to make them consonant with the appellant's contention. We are, however, of the opinion that it is not permissible to indulge in any such speculation about the intention of the Legislature, which must be gathered from the language employed in the enactment. There is no force in the contention that the amendment effected by Act XX of 1954 would be rendered futile if the construction suggested by the appellant was not accepted. The amendment would have still served its purpose, inasmuch as it placed beyond doubt the fact that the disability of the land-holder who let out the land need not subsist on the date immediately preceding the date of vesting.

    16. The learned counsel for the appellant also relied on the rule of benevolent construction. It was contended that Sec. 21(1)(h) of the U.P Zamindari Abolition and Land Reforms Act was a beneficial legislation and the Courts should therefore lean in favour of an interpretation which would further the object of such enactment. It was urged that if restricted grammatical interpretation gave rise to an absurdity or inconsistency, such interpretation should be discarded and an interpretation which would give effect to the purpose of the Legislature may reasonably be put on the words; if necessary, even by the modification of the language used. Sec. 21(1)(h) can bear the interpretation suggested by the learned counsel for the appellant only if we substitute the word “be” for and add the words “or their predecessors in interest” after the words “all of them were persons or persons belonging” occurring in Sec. 21(1)(h).

    17. It cannot be disputed that the rule of benevolent construction is applicable only where a provision of law is ambiguous so that it is capable of two meanings one which would preserve the benefit of a beneficial legislation and another which would take it away. In such circumstances the meaning which preserves it should be adopted. But the occasion for showing preference for one construction to the other can legitimately arise only when two constructions are reasonably possible, not otherwise. See Mahadeolal Kanodia v. Administrator-General Of West Bengal A.I.R 1960 S.C 936 939. and Madhya Pradesh Mineral Industry Association v. The Regional Labour Commissioner A.I.R 1960 S.C 1068 1071.. If the language of the statute is plain and unambiguous, no question of liberal construction arises. In their anxiety to advance the beneficent purpose of legislation the Court must not yield to the temptation of seeking; ambiguity when there is none. The intention of the Legislature must be accepted as expressed in the actual words used, by it. The rule was stated by Tindal C.J in Sussex Peerage6 case in the following form:—

    “If the words of the statute are in themselves precise and unambiguous, then no more can be necessary than to expound those words in their natural am ordinary sense. The words themselves do alone in such cases best declare the intent of the law giver.”

    18. In Rannanjaya Singh v. Baijnath Singh A.I.R 1954 S.C 740 752., S.R Das, J. observed.

    “The spirit of the law may well be an elusive and unsafe guide and the sup posed spirit can certainly not be given effect to in opposition to the plain language of the sections of the Act.”

    19. The same rule was approved by Gajendragadkar, J. in Kanilal v. Parmanidhi A.I.R 1957 Supreme Court 907 910. when he observed:—

    “If the words used are capable of one construction only, then it would no be open to the Courts to adopt any other hypothetical construction on the ground that such hypothetical construction is consistent with the alleged object ant policy of the Act.”

    20. In M.V Joshi v. M.U Shimpi A.I.R 1961 S.C 1494 1498. Subbarao, J. remarked:—

    “But these rules do not in any way affect the fundamental principles of interpretation, namely, that the primary test is the language employed in the Act and when the words are clear and plain the Court is bound to accept the expresses intention of the Legislature.”

    21. The words used in Sec. 21(1)(h) are absolutely plain and unambiguous. Their natural and grammatical meaning is consistent only with the interpretation that the land-holder on the date of vesting must be the same person as the one who let out the land and suffered from disability on the date of letting and also on the 9th April, 1946, in case the letting was before that date The Legislature has used the word “are in the section, which is significant. It is a present tense verb and denotes the existence of a certain position or state of affairs obtaining “on the date immediately preceding the date of vesting”, which are the opening words of the section. There is no justification for substituting any other word for “are”, because modifying the language of the statute is an exception rather than a rule and is not permissible except in cases of ambiguity leading to absurdity. The Legislature has also advisedly used a past tense verb namely “were” closely following the preceding words “are”. The words “person or persons belonging” mentioned in the section obviously refer to the person or persons who let out the land and were disabled persons on the material dates. It is manifest that Sec. 21(1)(h) contemplates the land-holder or land-holders, satisfying both conditions, the one relating to the present, i.e the date immediately preceding the date of vesting and the other relating to the past namely being a disabled land-holder who originally let out the land and suffered from a disability on the material dates. Such a combination of attributes is possible only when the identity of the land-holder or land-holders on the date of letting as well as the date immediately preceding the date of vesting is the same. In case the land-holders on the date immediately preceding the date of vesting are different from those who let out the land, the words “all of them” would not bear a correct and consistent meaning unless the words “or their predecessors in interest” are added before “all”. Thus, in order to confer the benefit of Sec. 21(1)(h) on a fresh set of land holders, different from the original land-holders who let out the land, considerable violence will have to be done to the natural meaning of the words of the section. This is a licence which is not permissible by the canons of statutory interpretation. On the contrary, the language of the section as it stands is in full conformity with, the interpretation that the identity of the land holder on the date of letting and the date immediately preceding the date of vesting must remain the same. The crucial words used in the section are “where the land-holder or if there are more than one land-holder all of them were person or persons belonging….”. The word “are” and the word “them” together with the word “were” in the aforementioned phrase clearly show that the intention of the Legislature was that on the date of vesting the “land-holder” should be the very person who was the land-holder on the relevant dates, to earn the benefit of clause (h) of Sec. 21(1). The reasoning has been noted in the case of Smt. Hasina Bibi v. Ram Din.

    22. The counsel for the appellant also contended that the interpretation which we are accepting would result in great hardship. It was submitted that if the identity of the land-holder must remain unchanged, the heirs of a disabled land-holder who let out his land would be deprived of the benefit of Sec. 21(1)(h). In other words, if a disabled land-holder died after letting out his land and did not survive till the date of vesting, the sub-tenant would not become an asami. It is not for a Court to decline to give effect to a clearly expressed statute because it may lead to apparent hardship. Hardship or inconvenience cannot alter the meaning of the language employed by the Legislature. Examples of hardship cited by the appellant can be matched with other illustrations of equal hardship which might result on accepting the appellant's interpretation of the section, it is impossible to devise an interpretation which might be completely immune from the element of hardship. When the words of the statute are clear, they must be given effect to and questions of fairness and hardship are not matters for the Courts to consider. We cannot allow hard cases to make bad laws. As observed by Sarcar, J. in Martin Burn Ltd. v. Calcutta Corporation A.I.R 1966 S.C 529 535..

    “A result flowing from a statutory provision is never an evil. The Court has no power to ignore that provision to relieve what it considers a distress resulting from its operation. A statute must of course be given effect to whether a Court likes the result or not.

    23. In Commissioner of Agricultural Income Tax v. Keshab Chand A.I.R 1950 S.C 265 270., Das, J. observed:—

    “Hardship or inconvenience cannot alter the meaning of the language employed by the Legislature if such meaning is clear on the face of the statute or the rules.”

    24. If the law as it stands, is oppressive or inequitable, the Legislature which devised in can alone reform it. The rule was emphasised by the Supreme Court in Bengal Immunity Co. v. State of Bihar A.I.R 1955 S.C 661., Das, J. pointed out (at page 685):—

    “Why should the Court be called upon to discard the cardinal rule of interpretation for mitigating a hardship which after all may be entirely fanciful when the Constitution itself has provided for another authority more competent to evaluate the correct position to do the needful?

    “Again and again” says Viscount Simon, L.C in Emperor v. Benoari Lal A.I.R 1945 Privy Council 48 53. this Board has insisted that in construing the enacted words we are not concerned with the policy involved or with the results, injuries or otherwise, which may follow from giving effect to the language used.”

    25. Our interpretation is also countenanced by a historical survey of the parallel provisions contained in the preceding Tenancy Laws. It appears that the protection given to a disabled person has always been in the nature of a personal protection granted to the very individual who let out the land as a disabled land-holder and the protection ceased to be available when the identity or personality of that land-holder changed. Thus, for instance, Sec. 29(6) of the Agra Tenancy Act 1926 exempted certain disabled land-holders from the restrictions on sub-letting. Under Sec. 29(7) such sub-lease granted by a “disabled person” was to remain in force for not more than five years after the death of the lessor or his ceasing to be a disable person. It is clear from this provision that the privilege granted was to the disabled person alone i.e to the lessor and did not continue if he, the tenant, changed i.e in case another person was inducted as a tenant. For instance, in case a person, who did not fall in the category of disabled persons named in Sec. 29(6), had been co-opted with the permission of the zamindar land-holder under the proviso to Sec. 23(2)(b) of the Act, the privilege would cease. A parellel provision was made in Sec. 41 of the U.P Tenancy Act, 1939 whereby the disabled tenants were exempted from the restrictions imposed on sub-letting. It was provided by Sec. 41(2) that a sub-lease by a disabled person would not remain in force beyond three years after the death of the lessor or on his ceasing to be a disable person. The word used was “lessor” and not “tenant”. The section did not apply where, for example, a tenant having been granted transferable rights under Sec. 4(4) of the U.P Tenancy Act might transfer his rights in the holding to another. The change of land-holder could take place in many ways such as by transfer of transferable rights or coopting of co-tenant. In all these cases the person or persons who constituted the new body of land-holders did not become entitled to the benefit accruing from the disability of the land-holder. If a disabled person transferred his right to an able-bodied person, the transferee was not entitled to the benefit of Sec. 41(2). Thus, from the historical perspective also it appears that what was said to be protected was the interest of the lessor, who was himself disabled on the relevant dates. Keeping in view the above principles our answers to the question referred to us for decision are as follows:—

    (1) In the circumstances of this case and on the facts assumed in the referring order that there were two land-holders on the date of vesting namely Smt. Maya and her husband Thakurdas, a new body of “land-holders” had come into existence, and all of them were not the land-holders who had originally let out the land as disabled persons. Hence, the plaintiffs became adhivasis and the defendants were not entitled to the benefit of Sec. 21(1)(h).

    (2) For the purposes of Sec. 21(1)(h) of the U.P Zamindari Abolition and Land Reforms Act what has to be considered is the disability of the landholder who let out the land and suffered from the disability on the date of letting as well as on the 9th April, 1946, (where the letting was done prior to that date) and who continued to be the land holder on the date immediately preceding the date of vesting.

    (3) Section 21(1)(h) of the U.P Zamindari Abolition and Land Reforms Act applies to a tenant, sub-tenant or occupant as the case may be, where the land-holder did not belong to anyone or more of the classes mentioned in sub-sec. (1) of Sec. 157 of the U.P Zamindari Abolition and Land Reforms Act on the date of vesting but belonged to such class or classes both on the date of letting or occupation and on the 9th of April, 1946 provided he continued to be the land-holder on the date of vesting.

    (4) For the purpose of Sec. 21(1)(h) of the U.P Zamindari Abolition and Land Reforms Act the “land-holder” is the person who was the land-holder on the material dates and continued to be the land-holder on the date immediately preceding the date of vesting, though his disability might have ceased on or before the date of vesting.

    26. With the above answers the papers of this case will be returned to the learned single Judge who made the reference.

    27. Questions answered.

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    Smt. Maya v. Raja Dulajji And Others
    (Mar 18, 1970)