The dispute revolved around the validity of the acquisition of a portion of land (1,596.40 sq. m.) at CTS No. B-960 in Village Bandra, Mumbai, owned by the Basilica of Our Lady of the Mount (Church Trust). This Subject Land, encroached by hutment dwellers since the 1930s, was declared a Slum Area in parts in 1978 and 2002. The slum dwellers formed the Shri Kadeshwari Cooperative Housing Society Ltd. (Proposed) (Kadeshwari Society).
In 2017, Kadeshwari Society appointed M/s Saldanha Real Estates Pvt. Ltd. (Saldanha) as its developer for redevelopment. Saldanha also attempted to purchase the land from the Church Trust, offering INR 3 crores, but the deal did not proceed. The Church Trust intended a composite redevelopment of the Subject Land with other plots, including ‘Nirmala Colony’. Kadeshwari Society, however, opposed this and sought an NOC for Saldanha to redevelop the Subject Land independently.
Kadeshwari Society then submitted a proposal to the Slum Rehabilitation Authority (SRA) to declare the Subject Slum (including parts of BMC land) as a Slum Rehabilitation Area (SR Area) under Section 3C(1) of the Slums Act. Despite the Church Trust informing the SRA of its own redevelopment plans and submitting a feasibility report, the SRA processed Kadeshwari Society’s proposal. The SRA declared the Subject Slum as an SR Area on December 29, 2020, rejecting the Church Trust’s objections. The Church Trust appealed this order to the Apex Grievance Redressal Committee (AGRC), but the appeal remained unheard.
Subsequently, both Saldanha (with Kadeshwari Society’s support) and the Church Trust submitted redevelopment proposals. The SRA only considered Saldanha’s proposal and initiated acquisition proceedings for the Subject Land under Section 14, based on Kadeshwari Society’s application. The Church Trust’s proposal was rejected by the SRA on technical grounds.
Aggrieved by the acquisition proceedings, the Church Trust approached the High Court. The High Court, in its judgment dated June 11, 2024, declared the acquisition void and directed the SRA to consider the landowner’s proposal for redevelopment, citing the Church Trust’s preferential right to develop the Subject Land. Kadeshwari Society, Saldanha, and the SRA filed appeals against this High Court judgment.
Law Involved:
Maharashtra Slum Areas (Improvement, Clearance and Redevelopment) Act, 1971 (Slums Act): This is the primary legislation governing the dispute.
Chapter I-A of the Slums Act: Specifically addresses Slum Rehabilitation Areas.
Maharashtra Slum Areas (Improvement, Clearance and Redevelopment) (Amendment) Act, 2017 (2018 Amendment): Introduced changes to the Slums Act, which came into force on April 26, 2018.
Section 3B: Amended to allow the SRA to amend General Slum Rehabilitation Schemes, broadened the scope of matters to be provided for, and explicitly included ‘owners’ as stakeholders. A new sub-section (4) stipulated that the General SR Scheme would be deemed Development Control Regulations and prevail over others.
Section 3C(1): Augmented the process for declaring land as an SR Area, requiring a 30-day notice and opportunity to be heard for owners and stakeholders before the Chief Executive Officer (CEO) issues a reasoned order.
Section 13 (as modified by Section 3D): Modified to qualify ‘reasonable time’ for owners to come forward for redevelopment as “not more than one hundred and twenty days”. It also introduced an appeal mechanism to the Apex Grievance Redressal Committee (AGRC).
Section 14: Outlines the power of the State Government to acquire land for development under an SR Scheme, requiring a show-cause notice to the owner.
Precedents:
Tarabai Nagar Co-Op. Hog. Society (Proposed) v. The State of Maharashtra and others: A 2-Judge Bench decision (including Surya Kant, J.) that upheld the private owner’s preferential right to develop an SR Area, requiring notice to the owner and extinguishment of this right before acquisition.
Indian Cork Mills (P) Ltd. v. State of Maharashtra: Laid down the principle of a private owner’s preferential right to develop an SR Area, requiring notification and invitation to undertake redevelopment.
Reasoning:
The Supreme Court addressed three key issues:
- Rejection of Kadeshwari Society’s Preliminary Objection (Maintainability of Writ Petition):
The Court held that the High Court was justified in intervening at a preliminary stage in exercise of its plenary jurisdiction under Article 226 of the Constitution.
Intervention was necessary to prevent executive overreach, arbitrary decision-making, mala fides, or colourable exercise of power, and to avoid “more complications on account of creation of third-party rights by the private builder and consequential multiplicity of litigation”.
Actions taken under statutory power, such as the notice for acquisition under Section 14, are amenable to judicial review.
- Impact of the 2018 Amendment on the Law Laid Down in Indian Cork Mills (supra) and Tarabai (supra):
The Court found that the 2018 Amendment did not remove or dilute the preferential right of the landowner to redevelop an SR Area. Instead, the inclusion of ‘owner’ in Sections 3B(5) and 13 further entrenched this right.
The specific notice-cum-invitation under Section 13 for redevelopment remains a mandatory requirement. A notice under Section 3C (for declaring an SR Area) serves a different purpose (inviting objections to the declaration) and cannot substitute the Section 13 notice.
The newly added 120-day time limit in Section 13 takes effect after the owner is notified and invited to redevelop the SR Area, not automatically from the Section 3C(1) Declaration. The argument that the owner is expected to submit a scheme without such an invitation was rejected as “wholly misconceived”.
- Validity of Acquisition Proceedings in the Instant Case:
Absence of Notice-cum-Invitation: The SRA failed to issue any specific notice or invitation under Section 13 to the Church Trust. This omission meant the Church Trust’s preferential right to redevelop remained intact, rendering the acquisition proceedings “vitiated in law”.
No Waiver of Preferential Right: The Church Trust consistently expressed its intent to redevelop since 2013 and submitted a consolidated proposal. The Court found no basis to infer any waiver of its preferential right.
Questionable Conduct of Parties: The Court drew “adverse inferences from the Appellants’ disconcerting conduct”.
Kadeshwari Society and Saldanha: The Society’s persistent resistance to the Church Trust’s proposal (which offered better benefits to slum dwellers) in favor of Saldanha’s less advantageous one, suggested Saldanha was “orchestrating the Society’s actions from behind the scenes”. Saldanha’s actions were seen as a “calculated attempt to wrest the Subject Land” for commercial gain, even including a “veiled threat” in its correspondence to the Church Trust. This was characterized as a “land grab”.
SRA’s Conduct: The SRA demonstrated a “dire lack of application of mind or any objective and coherent reasoning”. It blatantly “shrugged off its duty” to invite the owner under Section 13. The SRA ignored the Church Trust’s proposal, processed Saldanha’s favorably, and rejected the Trust’s on “flimsy grounds” without offering a chance for rectification. Furthermore, the SRA proceeded with acquisition despite the Church Trust’s appeal against the SR Area declaration itself pending before the AGRC, showing “uncharacteristic urgency” and “pervading influence of the powerful private developer”. The SRA was found to have abandoned its public duty, showing “collusion and connivance” with private builders.
Holding: The Supreme Court dismissed all appeals.
The Impugned Judgement of the High Court was upheld. Liberty was granted to the Church Trust to submit an SR Scheme for redevelopment of the Subject Slum within 120 days, strictly in accordance with laws and regulations, and bound by its earlier offers for apartment sizes and benefits to slum dwellers. The SRA was directed to offer full support to the Church Trust for surveys, demarcation, etc., to enable scheme submission.
The SRA and the State were directed to process the Church Trust’s proposal expeditiously within 60 days from the date of submission. The acquisition proceedings were deemed illegal due to the SRA’s failure to adhere to the prerequisites and the “obviously colourable conduct” of the Appellants, thus protecting the statutory rights of the Church Trust.
Saldanha Real Estate Private Limited V. Bishop John Rodrigues and others
Supreme Court: 2025 INSC 1016 (DoJ 22-08-2025)