The Waqf (Amendment) Bill 2025 was tabled in the Lok Sabha recently by the Union Minister of Minority Affairs. The Bill, proposes major changes to the Waqf Act 1995, by introducing sweeping changes in the governance and regulation of Waqfs in India. However, the Bill has been met with strong criticism from the opposition parties, who have held it as unconstitutional, divisive and anti-minority.
Waqf Property- A waqf, also known as ḥabs or mortmain property, is an inalienable charitable endowment established under Islamic law. It is a personal property given by Muslims for a specific purpose– religious, charitable, or for private purposes. The ownership of the property is implied to be with God. However, the beneficiaries of the property can be different.
Formation of Waqf- The Waqf can be formed through a deed, or Instrument, or even orally. A property can be deemed to be Waqf if it has been used for religious or charitable purposes for a long period of time. Once a property is declared as Waqf, its character changes forever, and cannot be reversed.
Governance Structure for Waqfs in India
Pre-colonial Governance- The Waqfs in India have been legally Governed in India since 1913. The Muslim Waqf Validating Act was enacted in 1913. This act was replaced by the Mussalman Wakf Act, 1923.
Post Independence- The Central Waqf Act, 1954 was enacted after independence to provide for the regulation of Waqfs. This act was ultimately replaced by the Waqf Act, 1995.
Major Provisions and Institutional Structure as Provided by the Waqf Act
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Survey commissioner
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The Waqf Act provides for the appointment of a survey commissioner. The commissioner maintains a list of all Waqf properties by making local investigations, summoning witnesses, and requisitioning public documents.
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Mutawalli (caretaker)
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The Act provides for a Mutawalli (caretaker) who acts as a supervisor of the Waqf properties.
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Management of Waqf Properties
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Waqf properties are managed in a way that is similar to how properties under Trusts are managed under the Indian Trusts Act, 1882.
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Waqf Boards
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a. It is a body under the state government. It works as a custodian for Waqf properties across the state.
b. In most states, there are separate Waqf Boards for the Shia and Sunni communities. Almost all prominent mosques in the country are Waqf properties and are under the Waqf Board of the state.
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Composition
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A Waqf Board is headed by a chairperson
Members-
a. One or two nominees from the state government
b. Muslim legislators and parliamentarians
c. Muslim members of the state Bar Council
d. Recognized scholars of Islamic theology
e. Mutawallis of Waqfs with an annual income of Rs 1 lakh and above.
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Powers and Functions
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a. Administration of the Waqf properties and taking measures for the recovery of lost properties of any Waqf
b. Sanctioning any transfer of immovable property of a Waqf by way of sale, gift, mortgage, exchange, or lease. However, the sanction shall not be given unless at least two thirds of the members of the Waqf Board vote in favor of such a transaction.
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Central Waqf Council (CWC)
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The Central Waqf Council (CWC) was established in 1964, to supervise and advise state–level Waqf Boards across India.
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Functions
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a. Provide Guidance to the Central, state Governments, and Waqf boards on property management.
b. It can require boards Waqf boards to provide information on their performance, including financial records and reports.
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Waqf Tribunal
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The Waqf Act provided for a Waqf tribunal to be constituted by the state governments to resolve disputes related to Waqf properties in India. According to the Section 6 of the Waqf Act 1995, the tribunal’s decision is taken as final in case of disputes regarding a property’s status as Waqf.
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Composition
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It comprises three members–
a. Chairperson who is a state judicial officer not below the rank of a District, Sessions or Civil Judge, Class I.
b. An officer from the state civil services.
c. A person with knowledge of Muslim law and jurisprudence.
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2013 Amendment to Waqf Act 1995
a. Authority to Waqf Boards to designate a property as Waqf.
a. Prescribed imprisonment of up to two years for encroachment on Waqf property
b. Explicitly prohibit the sale, gift, exchange, mortgage, or transfer of Waqf property.
What key changes are introduced by the Waqf Amendment (Bill) 2025?
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Retention of Waqf by User Doctrine and future recognition
“Waqf by user” properties registered on or before the law’s enactment will retain their status unless they are disputed or identified as government land.
However, the Future recognition of waqf status requires documentary proof or declaration from a practicing Muslim of at least five years.
“Waqf by user” is a doctrine rooted in Islamic legal traditions that recognised properties as religious or charitable endowments based on their uninterrupted communal use, even in the absence of formal documentation.
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Inclusion of non-muslims in waqf institutions
1. Non-Muslims will be appointed to key waqf institutions, including the Central Waqf Council, State Waqf Boards, and waqf tribunals.
2. Both the Central Waqf Council and State Waqf Boards must include at least two non-Muslim members.
*Non-Muslims will remain a minority in both the Council and the Waqf Boards.
3. The requirement that a waqf board’s chief executive officer must be a Muslim has been removed.
4. State government representatives on the Waqf Board must be a Joint Secretary-level officer “dealing with waqf matters.”
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Waqf Tribunal & Legal Changes
Tribunal Composition: Waqf Tribunals will now have three members instead of two:
a. A District judge
b. A Joint secretary-level state officer
c. An expert in Muslim law
2. Appeals: Tribunal decisions can be challenged in the High Court within 90 days
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Empowering Government Officials in Property Disputes
The Bill empowers senior government officers (above District Collector rank) to settle disputes over whether a property is waqf or government land, replacing the Waqf Tribunal’s exclusive authority under the 1995 Act.
Until the officer submits a report, disputed properties will be treated as government property.
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Application of Limitation Act to Waqf Properties
The Section 107 of the Waqf Act, which had excluded waqf properties from the Limitation Act, 1963, has been removed. With this deletion, the standard 12-year limitation for reclaiming encroached property will now apply to waqf land.
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Centralised Digital Registration of Waqf Properties
The Bill mandates the creation of a digital portal for registering and updating waqf properties.
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Central Government Oversight
The Comptroller and Auditor General (CAG) will conduct audits.
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Separate Waqf Boards
Separate Waqf Boards will be allowed for the Bohra and Agakhani sects
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What is the rationale for the Key changes introduced as part of amendments to the Waqf Act 1995?
- Address Concerns around Mismanagement and Corruption of Waqf Boards-There have been concerns regarding the lack of transparency in the operations of Waqf Boards, in financial and administrative operations. The proposed amendments are aimed at enhancing the operational transparency of Waqf Boards.
- Reduction of property disputes-The government contends that the amendments will lead to reduction of extensive disputes over waqf property, by providing clear definitions and requiring mandatory verification of property claims.
- Streamlining of Legal Disputes and Jurisdiction Issues- According to the Waqf Act, the Waqf Tribunal’s decision could not be appealed in civil courts. This led to perceptions of bias and injustice. The proposed amendments seek to streamline the jurisdictional issues in line with the principles of natural justice.
- Women Representation-The proposed amendments which allow for women representation as members of Waqf Board is a step in the direction of Women empowerment.
Concerns
- Violation of Religious Rights-Critics argue that the bill infringes upon the freedom of religion as provided by Article 25 and the autonomy of the Muslim community to manage their own religious affairs.
- Increased Government Control-The proposed amendments grant greater powers to the government over Waqf properties, including the involvement of district collectors in property disputes. There are concerns that it can lead to bureaucratic delays and potential judicial-executive overreach.
- Inclusion of Non-Muslims in Waqf Boards-Critics argue that the inclusion of non-muslims, undermines the integrity of these religious bodies. Non-muslim members may lack comprehensive understanding of the cultural and religious practices of Islam.
- Potential for Increased Disputes-Removal of the waqf tribunal’s authority and the assignment of this role to district collectors, could lead to increased disputes over Waqf properties. Critics argue that this could complicate the resolution process and expose properties to further legal challenges.
- Lack of Community Consultation- The bill has been criticized for being drafted without adequate consultation with the Muslim community and stakeholders. Many organizations, including the All India Muslim Personal Law Board, have voiced their concern that the bill was created without their input.
Road ahead
- Protection of Waqf Properties-Establish a clear and transparent process for determining waqf properties, with judicial oversight to prevent arbitrary decisions.
- Broader Consultation-The government should engage in extensive consultations with various stakeholders, including Muslim community leaders, legal experts, and civil society organizations.
- Public Awareness Campaigns-Implementing public awareness campaigns about the Waqf system and the proposed changes can help dispel misconceptions and educate the community about their rights and responsibilities under the new framework.
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