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REPORTABLE

IN THE SUPREME COURT OF INDIA

CIVIL APPELLAE JURISDICTION

CIVIL APPEAL NOS. 4250-4252 OF 2014 (arising out of S.L.P. (Civil) Nos. 23157-23159 of 2012)

FASEELA M.                                Appellant(s)

                  VERSUS

MUNNERUL ISLAM MADRASA COMMITTEE & ANR.   Respondent(s)

J  U  D  G  M  E  N  T

R.M. LODHA,  J.

Leave granted.

2. Sections 6 and 7 of the Waqf Act, 1995 (for  

short,  'Act')  provide  for  determination  of  certain  

disputes  regarding  auqaf  only  by  the  Waqf  Tribunal.  

These  provisions  as  amended  by  Act  27/2013  read  as  

under :

“Section 6. Disputes regarding auqaf.- (1) If  any  question  arises  whether  a  particular  property  specified  as  waqf  property  in  the  list  of  auqaf  is  waqf  property  or  not  or  whether a waqf specified in such list is a  Shia  waqf  or  Sunni  waqf,  the  Board  or  the  mutawalli of the waqf or any person aggrieved  may institute a suit in a Tribunal for the  decision of the question and the decision of  the Tribunal in respect of such matter shall  be final:

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Provided  that  no  such  suit  shall  be  entertained by the Tribunal after the expiry  of one year from the date of the publication  of the list of auqaf.  

Provided  further  that  no  suit  shall  be  instituted before the Tribunal in respect of  such  properties  notified  in  a  second  or  subsequent survey pursuant to the provisions  contained in sub-section (6) of section 4.

(2) Notwithstanding anything contained in sub- section (1), no proceeding under this Act in  respect of any waqf shall be stayed by reason  only of the pendency of any such suit or of  any appeal or other proceeding arising out of  such suit.  

(3) The Survey Commissioner shall not be made  a party to any suit under sub- section (1) and  no suit, prosecution or other legal proceeding  shall lie against him in respect of anything  which is in good faith done or intended to be  done in pursuance of this Act or any rules  made thereunder.  

(4)  The  list  of  auqaf  shall,  unless  it  is  modified in pursuance of a decision or the  Tribunal under sub-section (1), be final and  conclusive.  

(5) On and from the commencement of this Act  in a State, no suit or other legal proceeding  shall be instituted or commenced in a court in  that  State  in  relation  to  any  question  referred to in sub-section (1).

Section  7.  Power  of  Tribunal  to  determine  disputes regarding auqaf.- (1) If, after the  commencement  of  this  Act,  any  question  or  dispute arises, whether a particular property  specified as waqf property in a list of auqaf  is waqf property or not, or whether a waqf  specified in such list is a Shia waqf or a  Sunni waqf, the Board or the mutawalli of the  waqf,  or  any  person  aggrieved  by  the  publication of the list of auqaf under section

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5 therein, may apply to the Tribunal having  jurisdiction in relation to such property, for  the decision of the question and the decision  of the Tribunal thereon shall be final:  

Provided that-   (a) in the case of the list of auqaf relating  to any part of the State and published after  the  commencement  of  this  Act  no  such  application  shall  be  entertained  after  the  expiry  of  one  year  from  the  date  of  publication of the list of auqaf; and  

(b) in the case of the list of auqaf relating  to any part of the State and published at any  time within a period of one year immediately  preceding the commencement of this Act, such  an application may be entertained by Tribunal  within  the  period  of  one  year  from  such  commencement:  

Provided  further  that  where  any  such  question has been heard and finally decided by  a civil court in a suit instituted before such  commencement, the Tribunal shall not re-open  such question.  

(2)  Except  where  the  Tribunal  has  no  jurisdiction by reason of the provisions of  sub-section  (5),  no  proceeding  under  this  section in respect of any waqf shall be stayed  by any court, tribunal or other authority by  reason  only  of  the  pendency  of  any  suit,  application  or  appeal  or  other  proceeding  arising  out  of  any  such  suit,  application,  appeal or other proceeding.  

(3) The Chief Executive Officer shall not be  made a party to any application under sub- section (1).  

(4) The list of auqaf and where any such list  is modified in pursuance of a decision of the  Tribunal under sub- section (1), the list as  so modified, shall be final.

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(5) The Tribunal shall not have jurisdiction  to determine any matter which is the subject- matter of any suit or proceeding instituted or  commenced in a civil court under sub-section  (1) of section 6, before the commencement of  this Act or which is the subject-matter of any  appeal  from  the  decree  passed  before  such  commencement in any such suit or proceeding or  of  any  application  for  revision  or  review  arising  out  of  such  suit,  proceeding  or  appeal, as the case may be.

(6)  The Tribunal shall have the powers of  assessment  of  damages  by  unauthorised  occupation of waqf property and to penalise  such unauthorised occupants for their illegal  occupation of the waqf property and to recover  the damages as arrears of land revenue through  the Collector:

Provided that whosoever, being a public  servant, fails in his lawful duty to prevent  or remove an encroachment, shall on conviction  be punishable with fine which may extend to  fifteen  thousand  rupees  for  each  such  offence.”

3. Thus, Sections 6 and 7 of the Act not only  

confer exclusive jurisdiction upon the Waqf Tribunal  

for determination of certain disputes regarding auqaf  

but also take jurisdiction of the civil court away in  

respect of such disputes.

4. Munnerul Islam Madrasa Committee – respondent  

No. 1 – filed a suit for eviction against the appellant  

before the Waqf Tribunal,  inter alia, setting up the  

plea that respondent No. 1 is the landlord and the  

appellant is the tenant in the subject property. The

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subject property is described as waqf property.   

5. The appellant denied that the subject property  

was waqf property. He also challenged the jurisdiction  

of the Waqf Tribunal in determining the dispute between  

the parties.  

6. On  18.09.2010,  the  Waqf  Tribunal,  after  

hearing the parties, directed the plaint to be returned  

to the civil court having jurisdiction in the matter.  

However, on the next date, i.e., on 19.09.2010, the  

Waqf Tribunal  suo motu recalled the order passed on  

18.09.2010 and passed the following  order :-

“Called. It seems that issue framed included  whether  property  is  Wakf  property  or  not.  Hence  to  that  extent  this  Tribunal  have  jurisdiction.   But  due  to  oversight  and  mistake it is ordered to return the Plaint.  That order is an error apparent on face of  records  and  suo  motu  reviewed.  Call  on  30.9.2010.”  

7. The  appellant  filed  two  revision  petitions  

before the High Court – one, against the order dated  

19.09.2010 and the other, for declaration that the Waqf  

Tribunal has no jurisdiction in the matter.

8. The  High  Court  dismissed  both  revision  

petitions  and  one  original  petition  by  the  impugned  

order giving rise to the present Appeals, by special  

leave.

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9. The  question,  for  determination  in  these  

appeals, is as to whether the suit for eviction by the  

landlord against the tenant relating to waqf property  

is triable by the civil court or the suit lies within  

the exclusive jurisdiction of the Waqf Tribunal.

10. For  determination  of  the  above  question,  

besides  Sections  6  and  7,  the  two  other  provisions  

which deserve to be noticed are Sections 83 and 85 of  

the Act. These provisions read :

“Section  83.  Constitution  of  Tribunals,  etc.- (1)  The State Government shall, by  notification  in  the  Official  Gazette,  constitute as many Tribunals as it may think  fit, for the determination of any dispute,  question or other matter relating to a waqf  or waqf property, eviction of a tenant or  determination of rights and obligations of  the lessor and the lessee of such property,  under this Act and define the local limits  and jurisdiction of such Tribunals.   (2) Any mutawalli or person interested in a  waqf  or  any  other  person  aggrieved  by  an  order  made  under  this  Act,  or  rules  made  thereunder, may make an application within  the time specified in this Act or where no  such time has been specified, within such  time as may be prescribed, to the Tribunal  for  the  determination  of  any  dispute,  question  or  other  matter  relating  to  the  waqf.  

(3) Where any application made under sub-  section  (1)  relates  to  any  waqf  property  which falls within the territorial limits of  the jurisdiction of two or more Tribunals,

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such application may be made to the Tribunal  within  the  local  limits  of  whose  jurisdiction the mutawalli or any one of the  mutawallis  of  the  waqf  actually  and  voluntarily resides, carries on business or  personally works for gain, and, where any  such  application  is  made  to  the  Tribunal  aforesaid, the other Tribunal or Tribunals  having jurisdiction shall not entertain any  application  for  the  determination  of  such  dispute, question or other matter.  

Provided that the State Government may,  if it is of opinion that it is expedient in  the interest of the waqf or any other person  interested in the waqf or the waqf property  to transfer such application to any other  Tribunal  having  jurisdiction  for  the  determination  of  the  dispute,  question  or  other matter relating to such waqf or waqf  property, transfer such application to any  other Tribunal having jurisdiction, and, on  such  transfer,  the  Tribunal  to  which  the  application  is  so  transferred,  shall  deal  with the application from the stage which  was reached before the Tribunal from which  the  application  has  been  so  transferred,  except where the Tribunal is of opinion that  it is necessary in the interests of justice  to deal with the application afresh.   (4) Every Tribunal shall consist of-

(a) one person, who shall be a  member of the State Judicial Service holding  a  rank,  not  below  that  of  a  District,  Sessions or Civil Judge, Class I, who shall  be the Chairman;

(b) one person, who shall be an  officer  from  the  State  Civil  Services  equivalent in rank to that of the Additional  District Magistrate, Member;

(c)  one  person  having  knowledge  of Muslim law and jurisprudence, Member;

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and  the  appointment  of  every  such  person shall be made either by name or by  designation.  

(4A) The terms and conditions of appointment  including  the  salaries  and  allowances  payable to the Chairman and other members  other than persons appointed as  ex officio  members shall be such as may be prescribed.

(5) The Tribunal shall be deemed to be a  civil court and shall have the same powers  as may be exercised by a civil court under  the  Code  of  Civil  Procedure,  1908  (5  of  1908), while trying a suit, or executing a  decree or order.  

(6)  Notwithstanding  anything  contained  in  the  Code  of  Civil  Procedure,  1908  (5  of  1908),  the  Tribunal  shall  follow  such  procedure as may be prescribed.   (7) The decision of the Tribunal shall be  final and binding upon the parties to the  application and it shall have the force of a  decree made by a civil court.   (8)  The  execution  of  any  decision  of  the  Tribunal shall be made by the civil court to  which such decision is sent for execution in  accordance with the provisions of the Code  of Civil Procedure, 1908 (5 of 1908).   (9) No appeal shall lie against any decision  or order whether interim or otherwise, given  or made by the Tribunal:  

Provided that a High Court may, on its  own  motion  or  on  the  application  of  the  Board or any person aggrieved, call for and  examine the records relating to any dispute,  question  or  other  matter  which  has  been  determined by the Tribunal for the purpose  of satisfying itself as to the correctness,  legality or propriety of such determination  and  may  confirm,  reverse  or  modify  such  determination or pass such other order as it

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may think fit.

Section  85.  Bar  of  jurisdiction  of  civil  courts.- No suit or other legal proceeding  shall lie in any civil court, revenue court  and any other authority in respect of any  dispute, question or other matter relating  to any  waqf,  waqf property or other matter  which is required by or under this Act to be  determined by a Tribunal.”   

11. In  Ramesh Gobindram (Dead) through LRS.  Vs.  

Sugra  Humayun  Mirza  Wakf1,  this  Court  considered  

Sections 6(1), 6(5), 7(1), 7(5), 83, 85 and few other  

provisions of the Act and explained the jurisdiction of  

the Waqf Tribunal vis-a-vis Civil Court. As regards the  

suit  for  eviction  against  the  tenant(s)  of  waqf  

property, the Court held that such suit is triable by  

the Civil Court as it is not covered by Sections 6  

and 7 of the Act.

12. The  Court  in  para  35,   page  738  held  as  

follows :

“35. In the cases at hand the Act does not  provide  for  any  proceedings  before  the  Tribunal  for  determination  of  a  dispute  concerning  the  eviction  of  a  tenant  in  occupation of a wakf property or the rights  and obligations of the lessor and the lessees  of such property. A suit seeking eviction of  the  tenants  from  what  is  admittedly  wakf  property  could,  therefore,  be  filed  only  before  the  civil  court  and  not  before  the  Tribunal.”

1.   (2010) 8 SCC 726

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13. Mr.  Renjith  Marar,  learned  counsel  for  

respondent No. 1, submits that in a subsequent decision  

in Bhanwar Lal & Anr.  Vs.  Rajasthan Board of  Muslim  

Wakf and Ors.2, this Court has taken a different view.  

According  to  him,  Section  85  of  the  Act  leaves  no  

manner of doubt that the Waqf Tribunal has jurisdiction  

to decide the suit for eviction. It is so because one  

of the questions for determination is whether the suit  

property is waqf property or not.

14. The  Court  in  Bhanwar  Lal2  considered  the  

decision  in  Ramesh  Gobindram1 at  quite  some  length.  

Besides  Ramesh Gobindram1, the Court in  Bhanwar Lal2  

also  considered  two  other  decisions,  one,  Board  of  

Wakf, West Bengal & Anr.  Vs.  Anis Fatma Begum & Anr.3  

and two,  Sardar Khan and Ors. Vs.  Syed Nazmul Hasan  

(Seth) and Ors.4. In Anis Fatma Begum3, this Court had  

held that the Waqf Tribunal constituted under Section  

83 of the Act will have exclusive jurisdiction to deal  

with the questions relating to demarcation of the waqf  

property.

15. Pertinently, the Court in  Bhanwar Lal2   held  

2.   2013 (11) SCALE 210 3.   (2010)  14 SCC 588 4.   (2007)  10 SCC 727

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that the suit for cancellation of sale deed was triable  

by the civil court.

16. Bhanwar Lal2  follows the line of reasoning in  

Ramesh  Gobindram1.  The  decision  of  this  Court  in  

Bhanwar  Lal2  is  not  in  any  manner  inconsistent  or  

contrary to the view taken by this Court in  Ramesh  

Gobindram1.   We  fully  concur  with  the  view  of  this  

Court in Ramesh Gobindram1, particularly with regard to  

construction put by it upon Sections 83 and 85 of the  

Act. In Ramesh Gobindram1, the Court  said :-

“32.  There  is,  in  our  view,  nothing  in  Section  83  to  suggest  that  it  pushes  the  exclusion of the jurisdiction of the civil  courts extends  (sic)  beyond what has been  provided for in Section 6(5), Section 7 and  Section 85 of the Act. It simply empowers  the Government to constitute a Tribunal or  Tribunals for determination of any dispute,  question of other matter relating to a wakf  or wakf property which does not ipso facto  mean  that  the  jurisdiction  of  the  civil  courts stands   completely    excluded    by  reasons    of   such establishment.   

33. It  is  noteworthy  that  the  expression  "for  the  determination  of  any  dispute,  question or other matter relating to a wakf  or wakf property" appearing in Section 83(1)  also  appears  in  Section  85  of  the  Act.  Section 85 does not, however, exclude the  jurisdiction of the civil courts in respect  of any or every question or disputes only  because the same relates to a wakf or a wakf  property. Section 85 in terms provides that

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the jurisdiction of the civil court shall  stand  excluded  in  relation  to  only  such  matters as are required by or under this Act  to be determined by the Tribunal.  

34. The crucial question that shall have to  be  answered  in  every  case  where  a  plea  regarding exclusion of the jurisdiction of  the  civil  court  is  raised  is  whether  the  Tribunal  is  under  the  Act  or  the  Rules  required to deal with the matter sought to  be brought before a civil court. If it is  not, the jurisdiction of the civil court is  not  excluded.  But  if  the  Tribunal  is  required  to  decide  the  matter  the  jurisdiction of the Civil Court would stand  excluded.”

17. The matter before us is wholly and squarely  

covered  by  Ramesh  Gobindram1.  The  suit  for  eviction  

against  the  tenant  relating  to  a  waqf  property  is  

exclusive triable by the civil court as such suit is  

not covered by the disputes specified in Sections 6 and  

7 of the Act.

18. In  view  of  the  above,  the  impugned  order  

cannot be sustained and it is liable to be set aside  

and  is  set  aside.   The  order  passed  by  the  Waqf  

Tribunal on 19.09.2010 is also set aside. The  order of  

the  Waqf  Tribunal  dated  18.09.2010  is  restored.  The  

Civil  Court  shall  now  proceed  with  the  suit  

accordingly.

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19. Civil Appeals are allowed with no order as to  

costs.

 .......................J.   ( R.M. LODHA )

NEW DELHI;   .......................J. MARCH 31, 2014   ( KURIAN JOSEPH )