On 31 December 2014 the Modi government issued an ordinance amending the 2013 land acquisition law, removing the landowner consent requirement and allowing exemptions from social impact assessment for five kinds of projects. Through 2015 farmers' groups, Anna Hazare, people's movements and a united opposition protested in Delhi and the bill stalled in the Rajya Sabha. The government let the ordinance lapse on 31 August 2015 and said states could make their own changes.
Key takeaways
- The December 2014 land ordinance exempted defence, rural infrastructure, affordable housing, industrial corridors and infrastructure projects from the 2013 Act's consent rule of 80% of landowners for private projects and 70% for public-private partnership projects.
- Anna Hazare began a two-day protest against the land ordinance at Jantar Mantar on 23 February 2015, and Delhi Chief Minister Arvind Kejriwal joined him the next day.
- On 17 March 2015 about 100 opposition MPs led by Sonia Gandhi marched from Parliament to Rashtrapati Bhavan and asked President Pranab Mukherjee to stop the land bill in the Rajya Sabha.
- The government said the 2013 Act was rushed and badly drafted, that states had asked for the changes, and that compensation was unchanged; Prime Minister Modi told farmers "lies" were being spread.
- Rajasthan farmer Gajendra Singh died by suicide at an AAP rally against the land bill on 22 April 2015; Delhi Police and AAP blamed each other for not saving him.
- In August 2015 BJP members of the joint committee moved amendments to restore the consent and social impact provisions, and Modi announced on 30 August that the ordinance would not be renewed.
- After the lapse the Centre said states could amend the 2013 Act with Presidential assent; several states did, and in December 2018 the Supreme Court issued notice on a challenge to five states' amendments.
Background: the 2013 Act and the ordinance
The Right to Fair Compensation and Transparency in Land Acquisition, Rehabilitation and Resettlement (LARR) Act, 2013 replaced the 1894 land law. It raised compensation to two times the land price in urban areas and two to four times in rural areas, required a Social Impact Assessment (SIA) for most projects, and required the consent of 80% of landowners for private projects and 70% for public-private partnership (PPP) projects. Government projects did not need consent PRS Legislative Research.
The ordinance, promulgated on 31 December 2014, extended the 2013 Act's compensation rules to 13 other central laws, such as the National Highways Act, as the 2013 Act required. It also exempted five categories from the consent rule: defence, rural infrastructure, affordable housing, industrial corridors and infrastructure projects. It let the government exempt the same categories from SIA and from limits on acquiring irrigated multi-cropped land. Opponents said the five categories could cover most projects PRS.
Congress leader Mallikarjun Kharge said the government had issued the ordinance "without consulting anybody" right after the Parliament session ended, and that "they are with the corporates" Governance Now.
Anna Hazare at Jantar Mantar
In the days before the protest, a farmers' march left Palwal in Haryana for Delhi under the banner of P V Rajagopal's Ekta Parishad. India TV put it at around 5,000 farmers and said Medha Patkar, Dr Sunilam and K N Govindacharya walked with it India TV.
Hazare began his protest at Jantar Mantar on Monday, 23 February 2015, calling the ordinance anti-farmer and saying AAP leaders would not share his stage Governance Now. Turnout estimates differed. Deccan Herald reported "not more than 2,000-3,000 supporters" on the first day; Governance Now said several thousand farmers joined Deccan Herald Governance Now.
The protest leaders said nothing short of repealing the ordinance was acceptable. Medha Patkar (NAPM), Hannan Mollah (CPM), Atul Anjan (CPI) and Sunilam said the government had brought "a complete negation of the law" Deccan Herald. On 24 February Kejriwal joined Hazare, the first time the two had appeared together since Kejriwal formed AAP Governance Now. Farmers from Gurgaon, Mewat, Pataudi and Manesar also joined, some describing land acquired years earlier for projects that never came up Tribune.
The bill in Parliament
On 10 March 2015 the Lok Sabha passed the amendment bill by voice vote after the Congress and other parties walked out. The government moved nine amendments, including dropping "social infrastructure" from the exemptions, limiting industrial corridors to 1 km either side of highways and railway lines, and requiring a job for one member of an affected farm labourer's family. NDA ally Shiv Sena abstained. All 52 opposition amendments were negated or not pressed Deccan Herald.
The government did not have a majority in the Rajya Sabha. It had the Rajya Sabha prorogued on 28 March and re-promulgated the ordinance on 3 April with the nine amendments added LiveLaw Business Today. It was issued a third time on 31 May Free Press Journal.
The opposition march to Rashtrapati Bhavan
On 16 March the Youth Congress clashed with police during a protest at Jantar Mantar Business Today. The next day, about 100 MPs led by Sonia Gandhi walked roughly a kilometre from Parliament to Rashtrapati Bhavan. Reports counted 10 parties (IBTimes) or 14 (IANS, The Quint). Trinamool Congress and the Left marched together; the BSP, AIADMK and BJD stayed away, according to Business Today IBTimes IANS via Sentinel The Quint.
Business Today reported that Delhi Police first denied permission, the opposition threatened to court arrest, and the government then said no restrictions had been placed. A memorandum signed by 28 leaders asked the President to "impress upon the Modi sarkar, not to go ahead with the amendment in the Rajya Sabha" IANS. Parliamentary Affairs Minister M Venkaiah Naidu called the march anti-development Business Today.
We oppose the Narendra Modi government on the Land Bill and are determined to defeat its designs.
Sonia Gandhi, outside Rashtrapati Bhavan, 17 March 2015 (Business Today)
Farmers' organisations and the April rallies
On 18 March farmers' unions under the banner of the Indian Coordination Committee of Farmers Movements gathered at Jantar Mantar. Bharatiya Kisan Union (BKU) president Naresh Tikait demanded the consent of all farmers before any acquisition, and only for public purposes PTI via Business Standard. The BKU and three other groups also challenged the April re-promulgation in the Supreme Court as a "textbook example of blatant abuse" of ordinance power. A bench of Justices J S Khehar and S A Bobde issued notice to the Centre LiveLaw LiveLaw.
On 19 April the Congress held a Kisan Khet Mazdoor rally at Ramlila Maidan, which AP described as tens of thousands of farmers. Rahul Gandhi accused Modi of seeking to repay industrialists "by giving them land of farmers"; BJP minister Ravi Shankar Prasad answered by asking about "the Vadra model" of land acquisition AFP via Gulf News AP. Opposition also came from within the Sangh Parivar: the Swadeshi Jagran Manch held a protest in Delhi in May and called the bill "anti-farmer" Business Standard.
The death of Gajendra Singh at the AAP rally
On 22 April 2015 AAP held a rally against the land bill at Jantar Mantar, addressed by Kejriwal. Gajendra Singh, a 41-year-old farmer from Dausa in Rajasthan and a father of three who had lost his crops to unseasonal rain, died by suicide in public view during the rally Business Today. He was declared dead at Ram Manohar Lohia Hospital IANS via The News Minute.
AAP's account
Claim · AAP AAP leaders said they repeatedly asked police to help and the police did nothing. Kejriwal said in his speech: "Police may not be in our control but at least there should be humanity in them." Kejriwal ordered a magisterial inquiry Business Today. AAP announced Rs 10 lakh for the family IANS via Madhyamam.
Police and central government account
Claim · Delhi Police A New Delhi police officer said "there was no delay and cops were not spectators" Business Today. The FIR accused AAP workers of ignoring requests to let emergency vehicles through and of clapping after police asked them not to "instigate" him. Home Minister Rajnath Singh called the incident "shameful" in the Lok Sabha; AAP accused him of "lying" IANS via Madhyamam.
Police registered a case under IPC sections 306 (abetment of suicide), 186 (obstructing a public servant) and 34, transferred it to the Crime Branch, and refused to share evidence with the magisterial inquiry The Quint. In May an investigator told The Indian Express that a preliminary report to the Home Ministry termed the death "an accident and not intended suicide"; at that point no eyewitness had been found Indian Express via The Peninsula. In February 2016 the Crime Branch questioned AAP leader Sanjay Singh and four volunteers and served notices on Bhagwant Mann, Kumar Vishwas and Ashish Khetan Deccan Herald. No chargesheet, closure report or inquiry finding was found in the reporting reviewed.
Prime Minister Modi told the Lok Sabha the nation was pained and called farmer suicides an "old and widespread" problem needing a collective response IANS via Madhyamam.
If you or someone you know is struggling, India's national Tele-MANAS mental health helpline is 14416.
The government's case
Government's position In his Mann Ki Baat radio address on 22 March 2015, Modi said the 2013 Act had "lacunae" because it was "enacted in a hurry", that the requests for change "came from states", and that the new bill kept the same compensation. He said the no-consent rule applied to government and PPP projects and that the same clause existed in the earlier Act PTI via Deccan Herald.
It is my fervent appeal to farmers not to make decisions on the basis of these lies. Don't be misled.
Narendra Modi, Mann Ki Baat, 22 March 2015 (PTI via Deccan Herald)
Nitin Gadkari wrote to Sonia Gandhi, other opposition leaders and Anna Hazare offering an open debate, saying "No provision of the bill is anti-farmer" Business Today. He read out letters from the former Congress chief ministers of Maharashtra and Haryana asking for changes, and said that with a consent clause even the Bhakra Nangal dam could not have been built Deccan Herald. In May, Venkaiah Naidu said land was needed for irrigation, rural housing, rail lines and roads: "We want industry and agriculture" IBTimes.
After the lapse, Finance Minister Arun Jaitley wrote that the 2013 Act was "badly drafted legislation", that its SIA timelines could run to several years, that townships could not be finished within its five-year limit, and that most state governments had asked for the changes in 2014 Arun Jaitley.
Claim · Opposition The Congress rejected this. Ahmed Patel accused Modi of a "somersault" on farm promises PTI via Business Standard. Rahul Gandhi called it a "suit-boot government" and said finance ministry RTI data showed only 8% of stalled projects were held up by land problems IBTimes.
The joint parliamentary committee
On 12 May 2015 the Lok Sabha referred the bill to a 30-member joint committee, 20 from the Lok Sabha and 10 from the Rajya Sabha, with BJP MP S S Ahluwalia expected to chair it IBTimes. By the end of June, Business Standard reported that of about 44 witnesses, "barely a handful" supported the amendments. The NDA held 14 of the 30 seats Business Standard. The committee won extensions into August Free Press Journal.
On 3 August all 11 BJP members moved amendments to restore the consent and SIA provisions and drop the new Section 10A. A Congress member said the result was "as good as" the 2013 Act Deccan Herald The Quint. The committee did not report that session, and Jaitley wrote in September that the bill remained before it Arun Jaitley.
Timeline
Ordinance promulgated
Consent and SIA exemptions for five categories PRS.
Hazare's dharna
Jantar Mantar protest; Kejriwal joins on day two Governance Now.
Lok Sabha passes bill
Voice vote, nine amendments, opposition walkout Deccan Herald.
March to Rashtrapati Bhavan
About 100 MPs led by Sonia Gandhi Business Today.
Death at AAP rally
Gajendra Singh dies; case registered IANS.
Sent to joint committee
30 members IBTimes.
BJP members back consent clause
In the joint committee Deccan Herald.
Ordinance lapses
Modi announces it will not be renewed IANS via The News Minute.
The lapse and the shift to the states
In Mann Ki Baat on 30 August 2015 Modi said: "We had issued an ordinance which lapses tomorrow (August 31). I have decided, let it lapse. We will not renew it." He said the proposal for amendment "came from the states" and told farmers not to be scared by "rumours" IANS via The News Minute. An order under Section 113 extended the 2013 Act's compensation and resettlement benefits to acquisitions under the 13 other central laws Governance Now.
Industry body Assocham called the lapse a "setback to economic reforms" and hoped states would bring their own laws Business Today. Jaitley wrote that chief ministers at a NITI Aayog meeting had agreed states could amend the 2013 Act with Presidential assent under Article 254(2), and that one state already had Arun Jaitley. Rural Development Minister Birender Singh called this the NDA's "political answer" to the Congress IANS via Business Standard.
Outcome
- Central law: The ordinance lapsed on 31 August 2015 and Parliament never passed the amendments.
- Compensation: 2013 Act benefits extended to 13 central laws by executive order.
- Deaths: Gajendra Singh, at the 22 April AAP rally.
- Cases: FIR under IPC sections 306, 186 and 34; no outcome found in reporting reviewed.
- Courts: Supreme Court notice on the re-promulgation PIL in April 2015.
- States: Several states later made their own amendments.
Where things stand
A Centre for Policy Research paper found that several states used rules under Section 109 or their own laws under Article 254(2) to dilute the consent, SIA and food-security clauses of the 2013 Act CPR. On 10 December 2018 the Supreme Court issued notice on a petition by Medha Patkar and others challenging amendments by Gujarat, Andhra Pradesh, Telangana, Tamil Nadu and Jharkhand. The bench observed that "under the law, state amendments can be made" PTI via National Herald Bar and Bench. No ruling on that petition, and no new central move to amend the 2013 Act, was found in 2025-26 reporting reviewed.
Questions people ask
What did the 2015 land acquisition ordinance change?
It exempted defence, rural infrastructure, affordable housing, industrial corridors and infrastructure projects from the 2013 Act's landowner consent rule, and let the government exempt them from social impact assessment. It also extended the 2013 Act's compensation to 13 other central laws.
Why did Anna Hazare protest in February 2015?
He called the ordinance anti-farmer and demanded its withdrawal. He held a two-day protest at Jantar Mantar from 23 February with farmers' groups and activists including Medha Patkar.
Why did the land bill fail?
It passed the Lok Sabha in March 2015 but the NDA lacked a majority in the Rajya Sabha, where a united opposition blocked it. It was sent to a joint committee, where BJP members themselves moved to restore the consent and SIA clauses.
When did the land ordinance lapse?
On 31 August 2015. Modi announced in Mann Ki Baat on 30 August that it would not be renewed after being issued three times.
Who was Gajendra Singh?
A 41-year-old farmer from Dausa, Rajasthan, who died by suicide at AAP's rally against the land bill at Jantar Mantar on 22 April 2015. Delhi Police and AAP blamed each other for not saving him.
Sources
- PRS Legislative Research: Land Acquisition, an overview of proposed amendments to the law, March 2015
- Governance Now: Anna Hazare begins stir against land bill, AAP not to share dais, 23 Feb 2015
- Governance Now: Arvind Kejriwal joins Anna Hazare's protest at Jantar Mantar, 24 Feb 2015
- India TV: Anna Hazare leads a march to Jantar Mantar with 5000 farmers, Feb 2015
- Deccan Herald: Hoping to save their lands, farmers flock to Hazare, 24 Feb 2015
- Deccan Herald: Anna warns govt over land ordinance, 24 Feb 2015
- Tribune: Farmers join Anna's stir against land ordinance, 24 Feb 2015
- Deccan Herald: LS okays land bill with nine changes, 10 Mar 2015
- Business Today: Opposition unites against Modi govt's Land Acquisition Bill, 17 Mar 2015
- IANS via The Sentinel: Opposition set for do-or-die battle over land bill, 17 Mar 2015
- The Quint: United opposition puts government in a fix, 17 Mar 2015
- IBTimes India: Opposition leaders march against land bill, 17 Mar 2015
- PTI via Business Standard: BKU wants assent of 100% farmers for acquisition, 18 Mar 2015
- Business Today: Gadkari writes to Sonia, Hazare for debate on land bill, 19 Mar 2015
- Deccan Herald: Gadkari seeks debate on land bill; fumbles before village heads, 20 Mar 2015
- PTI via Deccan Herald: PM to farmers, lies being spread on Land Bill, 22 Mar 2015
- PTI via Business Standard: Cong hits back, accuses Modi of somersault on farmers issues, 22 Mar 2015
- Business Today: President clears land acquisition ordinance, 3 Apr 2015
- LiveLaw: PIL by 4 NGOs challenges re-promulgation of land ordinance, Apr 2015
- LiveLaw: SC may examine constitutionality of re-promulgating an ordinance, Apr 2015
- AFP via Gulf News: Rahul Gandhi takes on Modi government over land bill, 19 Apr 2015
- AP via Fox News: Tens of thousands of Indian farmers rally against land plans, 19 Apr 2015
- Business Today: A 41-yr-old farmer from Rajasthan commits suicide at AAP rally, 22 Apr 2015
- IANS via The News Minute: Delhi police register case in farmer's suicide at AAP's rally, 22 Apr 2015
- IANS via Madhyamam: Uproar over farmer's suicide, police accuse AAP of hindering rescue, 24 Apr 2015
- The Quint: Home Minister's Delhi Police defies AAP's inquiry order, Apr 2015
- The Peninsula (Indian Express report): Farmer's death, no leads, cops may quiz AAP leaders, 6 May 2015
- Deccan Herald: AAP men quizzed on farmer's death, 12 Feb 2016
- IBTimes India: Lok Sabha refers land bill to joint committee after debate, 12 May 2015
- Business Standard: Land Bill committee to seek extension amid more nays, 30 Jun 2015
- Free Press Journal: Fresh lease of life for govt panel on land Bill, Jul 2015
- Deccan Herald: Oppn forces BJP to relent on land acquisition bill, 4 Aug 2015
- The Quint: Govt to bring back six key provisions from UPA's land bill, 3 Aug 2015
- IANS via The News Minute: Won't renew ordinance on land acquisition, says PM Modi, 30 Aug 2015
- Governance Now: Land acquisition bill ordinance lapses today, 31 Aug 2015
- Business Today: Land acquisition ordinance lapse setback to reforms, says Assocham, 30 Aug 2015
- Arun Jaitley: blog post on the lapsed land ordinance and the states, 1 Sept 2015
- IANS via Business Standard: States can seek changes to land Act, says Birender Singh, 8 Sept 2015
- Centre for Policy Research: Mapping dilutions in a central law
- PTI via National Herald: SC issues notices to 5 states on amendments to 2013 Land Acquisition Act, 10 Dec 2018
- Bar and Bench: SC issues notice to five states on Land Acquisition Act amendments, 10 Dec 2018