AIR 1993 SUPREME COURT 2086
K. RAMASWAMY AND R.M. SAHAI. JJ.
No. 715 of 1990, Dt.-13-5-1993.
All India Imam Organisation and others, Petitioners, v. Union of India and others, Respondents.
Constitution of India, Acts. 32,21 - Right to live - Imams, " In charge of religious activities of mosque" - Are entitled to emolument even in absence of statutory provision in Wakf Act - Supreme Court directed the
Govt. and Central Wakf Board to prepare Scheme within period of six months.
"Imam" - Is entitled to emoluments even in absence of provisions under Wakf Act.
Muslim Law - Imam - Entitled to emoluments even in the absence of statutory provision.
The objective and purpose of every mosque being community worship and it being the obligation of Board under the Act to ensure that the objectives of the Wakf is carried on, Board can not escape from its responsibility for proper maintenance of religious
service in a mosque. To say, therefore, that the Board has no control over the mosque or Imam is not correct. In the absence of any provision in the Act or the rules providing for appointment of Imam or laying down condition
of their service is probable because they are not considered as employees. At the same time, it cannot be disputed that due to change in social and economic set-up they too need sustenance. Nature of their job is such that
they may be required to be present in the mosque nearly for the whole day. There may be some who may perform the duty as part of their religious observance. Still others may be ordained by the community to do so. But there
are large number of such persons who have no other occupation or profession or service for their livelihood except doing duty as Imam. What should be thier fate? Should they be paid any remuneration and if so how much and
by whom? According to the Board they are appointed by the mutawallis and, therefore, any payment by the Board was out of question. Prima facie it is not correct as the letter of appointments issued in some States are from
the Board. But assuming that they are appointed by the Mutawallis as the Mutawallis too u/s 36 of the Act are under the supervision and control of the Board. The right to life enshrined in Art. 21 means right to live with
human dignity. It is too late in the day, therefore, to claim or urge that since Imams perform religious duties they are not entitled to any emoluments. Whatever may have been the ancient concept but it has undergone change
and even in the Muslim countries mosques are subsidised and the Imams are paid their, remuneration.. Therefore, it can not be said that in our set up or in absence of any statutory provision in the Wakf Act the Imams who
look after the religious activities of mosques are not entitled to any remuneration. Financial difficulties of the institution can not be above fundamental right of a citizen. If the Boards have been entrusted with the
responsibility of supervising and administering the Wakf then it is their duty to harness resources to pay those persons who perform the most important duty namely of leading community prayer in a mosque the very purpose
for which it is created.
In the circumstances the Supreme Court issued the directions to the Union of India and the Central Wakf Board to prepare a Scheme within a period of six months in respect of different types of mosques. Mr. Gobinda Mukhoty,
Mr. R.K. Jain, Mr. Yusuf H. Machhale, Ms. K. Amreswari (N.R) Mr. R.N. Sachthey, Mr. N.N. Goswamy ad Mr. B.K. Prasad, (N.P.), Ms. Anil Katiyar, Ms. Niranjana Singh, Mr. Nafis Ahmad Siddiqui, Mr. Asgar Ali Khan, Mr. A.S.
Bhasme, Mr. E.M.S. Anam, Mr. Shakil Ahmad Syed. Mr. Anil K. Jha, Mr. RajKumar Mehta, Mr. S.K. Agnihotri, Mr. B.R. Jad, Mr. Anip Sachthey, Mr.M. Mohan Pandey, Mr. M Veerappaa, Mr. K.H.Nobin Singh, Mr. S.K. Melita, Mr. Dhruv
Mehta, Mr. Aman Vachher, Mr. RK. Manohar, Mr. B.B. Singh, Mr. Aruneshwar Gupta and Mr. R. Mohan, Advocate with them, appearing for the parties.
R.M. Sahai J., Imams, ' incharge of religious activities of the mosque'(1) have approached this Court by way of this, representative petition under Article 32 of the constitution for enforcement of fundamental right against
their exploitation by Wakf Board. Relief sought is direction to Central and State Wakf Boards to treat the petitioner as employees of the Board and to pay them basic wages to enable them to survive. Basis of claim is glaring
disparity between the nature of work and amount of remuneration. Higher pay scale is claimed for degree holders.
2. Imams perform the duty of offering prayer (Namaz) for congregation in mosques. Essentially the mosque is a centre of community worship where Muslims perform ritual prayer and where historically they also gathered for political,
social and cultural functions. (2) The functions of the mosque is summarised by the 13th Century Jurist Ibn Taymiyah as a place of gathering where prayer was celebrated and where public affairs were conducted, (3) All mosques
are where Muslims men on an equalitarian basis rich or poor, noble or humble, stand in rows to perform their prayers behind the Imam, (4) Imams are expected to look after the cleanliness of mosque, call Azans from the balcony
of the minarets to the whole religious meetings and propagate the Islamic faith. They are expected to be well versed in the Shariat, the holy Quran, the Hadiths, ethics, philosophy, social, economic and religious aspects.
Imam or prayer leader is the most important appointee. In the early days the ruler himself filled this role; he was leader (Imam) of the government of war, and of the common Salat ("ritual prayer"). Under the
Abbasids, when the caliph no longer conducted prayer on a regular basis, a paid Imam was appointed. While any prominent or learned Muslim can have the honour of leading payers, each mosque specifically appoints a man well
versed in the logical matters to act as its Imam. He is in charge of the religious activities of the mosque, and it is his duty to conduct prayers five times a day in front of Mihrab. (5).
3. On nature of the duties performed by the Imams there is no dispute. But both the Union of India and various State Wakf boards of different States which have put in appearance in response to the notice issued by this Court
have seriously disputed the manner of their appointment, right to receive any payment and absence of any relationship of master and servant. lt is stated that the Imams or Muazzins are appointed by the Mutwallis. According
to them the Wakf Board have nothing to do either with their appointment or working. It is claimed that under Islamic emoluments as a matter of right as the Islamic law ordains the Imams to offer voluntary service. They
are said to be paid some money out of the donations received in mosques or by the Mutwallis of the Boards. Their job is stated to be honorary and not paid. Nature of duty under Islamic Shariat is stated to lead prayers
which is performed voluntarily by any suitable Muslim without any monetary benefit. Some of the affidavits claim that they are appointed by people of the locality. The Union Government has specifically stated that Islam
does not recognise the concept of priesthood as in other religions and the selection of Imams is the sole prerogative of the members of the local community or the managing committee, if any, of the mosque. According to
Karnataka Wakf Board Imamat in the mosque is not considered to be employment. The allegation of the petitioners that due to meagre payment they are humiliated or insulted in the society, is denied and it is claimed that
they are respectable persons who carry on the duty of Imamat as a part of religious activity and not for earning bread and butter.The Delhi Wakf Board pointed out that the honorarium is paid to
(5) The Encyclopedia of Religion Vol. 10. 121-122
an Imam as a consideration for his five time presence in the mosque regularly and punctually. The Board has denied any right to exercise an authority over the mosque where Imams and Muazzins are appointed by the Mutawallis
or by the managing committees. It is stated that holding of a certificate from a registered institution to enable a person to lead the prayer is not necessary as the only requirement for being an Imam under the Shariat
is to have a thorough knowledge of the holy Quran and the rites, rules and obligation required for offering prayers according to the principles laid down by the Ouran and Sunnah.The affidavit filed on behalf of Wakf Board
has pointed out that mosque can be categorised in five categories. One, which are under direct control or management of the Government such as Mecca Masjid or the mosque situated in public garden which are not governed
or regulated by the MuslimWakf Board. Second, mosques which are under the direct management of Wakf Board. Third, mosques which are under the control of mutawallis under various Wakf Boards. According to the wishes of the
Wakf as the creator of the ***. Fourth, mosque which are not registered with the Wakf Board and are managed by local inhabitants and are under the management of the public who offer prayers regularly in a particular mosque;
and Fifth, mosques which are not managed by mutwallis or the Muslims of the locality. It is claimed that Imams of fourth and fifth category are not regular and any Muslim can lead the prayers, whereas under the third category
mosques are having regular Imams. Financial difficulty of the Wakf Board to meet the demand has also been pointed out. The Pondichery Wakf Board has pointed that there is not even one employee except a peon working there
and, therefore, it is not possible to meet the demand of the Imam. It is also claimed that the Board has no control over the pesh-Imams as they are considered to be well dignified personality of the society and they are
given due respect by the Muslim community as a whole. In the counter-affidavit filed by the PunjabWakf Board it has been stated that Imams of mosques in Punjab were being paid on the basis of their qualification. Imams
Nazara (Mubtaii grade) are in the scale of Rs. 380-20-580-25-830-30-980, where as Imams Hafiz (Wasti grade) are paid Rs. 445-20-720-25-970-30-1120. They are also paid Rs. 30/- per month medical allowance and Muazzins are
paid Rs. 310/- per month.These scales were revised in 1992. According to them Imams of all the mosques in Punjab, Haryana and Himachal Pradesh which come under the PunjabWakf Board are being paid regularly and they are
treated as regular employees. The sunni, Central Wakf Board of Uttar Pradesh filed only a written submission stating that all the sunni mosques were managed by mutwallis of the concerned managing committees and not by the
4. The mosque differs from a church or a temple in many respects. 'Ceremonies and service connected with marriages and birth are never performed in mosques.The rites that are important and integral functions of many churches
such as confession, penitence and confirmations do not exist in the mosques.(6) Nor any offerings are made as is common in Hindu temples. Ministry of Wakf (Endowments) appoints the servant, preachers and readers of the
Ouran. Mosques in non-muslim countries are subsidised by individuals. They are administered by their founder or by their special fund. A caretaker is appointed to keep the place clean. The Muazzin calls to prayer five times
a day fom the minaret (7) In ourcountry in l954 Wakf Act waspassed by the Parliament for better administration and supervision of Wakfs. To achieve the objective of the Act Section 9 provides for establishment of a Wakf
Board. The functions of which are detailed in Section 15. Sub-section (1 ) of it reads as under:
"(1) Subject to any rules that may be made under this Act,, the (general superintendence of all wakfs in a State in relation of all matters except those which are expressly required by this Act to be dealt with by the
Wakf Commissioner, shall vest in the board established for the State; and it shall be the duty of the Board so to exercies its powers under this Act as to ensure that the Wakfs under its supreintendence are properly maintained,
controlled and administered and the income thereof is duly applied to the object and for the purposes for which such wakfs were created or intended.
Provided that in exercising its power under this Act in respect of any wakf, the Board shall act in conformity with the directions of the wakf, the purposes of the wakf and any usage or custom of the wakf sanctioned by the
5. The Board is vested not only with supervisory and administrative powers over the wakfs but even the financial power vests in it. One of its primary duties is to ensure that the income from the wakf is spent on carrying out
the purposes for which wakf was created.
Mosques are wakf and are required to be registered under the Act over which the Board exercises control. Purposes of their creation is community worship. Namaz or Salat is the mandatory practice observed in every mosque '(
Among the Five Pillars (arkan; eg; rukn) of Islam, it holds the second most important position, immediately after the declaration of faith (shahadah).
(6) to (7) The Encvciopedia of
Britannica Vol. 18 p. 883
(8). The principal functionary to undertake it is the Imam. The objective and purpose of every mosque being community worship and it being the obligation of Board under the Act to ensure that the objective of the wakf is carried
on the Board cannot escape from its responsibility for proper maintenance of religious service in a mosque.To say, therefore , that the board has no control over the mosque or Imam is not correct. Absence of any provision
in the Act or the rules providing for appointment of Imam or laying down condition of their service is probably because they are not considered as employees. At the same time it can not be disputed that due to change in
social and economic set-up they too need sustenance. Nature of their job is such that they may be required to be present in the mosque nearly for the whole day. There may be some who may perform the duty as part of their
religious observance. Still other may be ordained by the community to do so. But there are large number of such persons who have no other occupation or profession or service for their livelihood except doing duty as Imam.
What should be their fate? Should they be paid any remuneration and if so how much and by whom? According to the Board they are appointed by the mutawallis and, therefore, any payment by the board was out of question. Prima
facie it is not correct as the letter of appointements issued in some states are from tile Board. But assuming that they are appointed by the Mutawallis the Board can not escape from its responsibility as the mutawallisltoo
u/S. 36 of the Act are under the supervision and control of the Board@ In a series of decisions rendered by this Court it has been held that right to life enshrined in Article 91 means right to live with human dignity.
It is too late in the day, therefore, to claim or urge that since lmams perform religious duties they are not entitled to any emoluments Whatever may have been the ancient concept but it has under gone change and even@in
Muslim countries Mosques are subsidised and lmams are paid their remuneration. We are, therefore, not willing to accept the submission that in our set up or in absence of any statutory provision in the Wakf Act the imams
who look after the religious activities of mosques are not entitled to any remuneration. Much ws argued on behalf of Union and the wakf Boards that their financial position was not such that they can meet the obligations
of paying the lmams as they are being paid in the State if Punjab. It was also urged that the number of Mosques is so large that it would entail heavy expenditure which the boards of different States w1ould not be able
to bear. We do not find any correlation between the two. Financial difficulties of the institution can not be above fundamental right of a cftizen. If the boards have been entrusted with the responsibility of supervising
and administering tewakf then it is their duty to harness resources to pay those persons who perform the most important duty
(8) The Encyclopedia of
Religion Vol. 13. 20-21
namely of leading community prayer in a Mosque the very purpose for which it is created.
6. In the circumstances we allow this petit.ion and issue following direction:
(i) The Union of India and the Central Wdkf Board will prepare a scheme within a period of six months in respect of different types of mosques, some detail of which has been furnished in the counter affidavit filed by the Delhi
(ii) Mosques which are under control of the government shall not be governed by this order. But if their lmams are not paid any remuneration and they have no independent income. The Government may fix their emoluments on the
basis as the Central Wakf Board may do for other mosques in pursuance of our order.
(iii) For other mosques, except those which are not registered with the Board of their respective States or which are not manned by members of Islamic faith the scheme shall provide for payment of remuneration of such lmams
taking guidance from the scale of pay prevalent in the State of Punjab and Haryana.
(iv) The State Boards shall ascertain income of each mosque the numberand nature of Imams required by it namelyfulitime orpart time.
(v) For the full time Punjab Wakf Board may be treated as guideline. That shall also furnish guideline for payment to part time lmam.
(vi) In all those mosques where full time lmams are working they shall be paid the remuneration determined in pursuance of this order.
(vii) Part time and honorary lmam shall be. paid such remuneration and allowance as is determined under the scheme.
(viii) The scheme shall also take into account those mosques which are small or are in the rural area or are such as mentioned in the affidavit of Pondichery Board and have no source of income and find out ways and means to
raise its income.
(ix) The exercise should be completed and the Scheme be enforced within six months.
(x) Our order for payment to lmams shall come into operation from lst Dec. 1993. In case the scheme is not prepared within the time allowed then it shall operate retrospectively from lst Dec. 1993.
(xi) The scheme framed by the Central Wakf Board shall be implemented by every State Board.
7. The writ petition is decided accordingly. Parties shall bear their own costs.
Whereas the Supreme Court vied its order of 13th May, 1993, in Writ petition (C) No. 725 of 1990 (All India lmam Organisation Vs. Union of @india & Others), inter all, directed the Union of India and Central Wakf Board
to prepare a scheme in respect of different types of mosques for payment of remuneration / emoluments to their lmams.
WHEREAS the implementation of the Supreme Court judgement was discussed at National Conference of State Government Ministers in charge of Wakf, Members, CentralWakf Council and representatives of the State Government/ UT Admns. on 15th September, 1993,
where as broad understanding was expressed that the matter be deliberated upon by a Committee. A High Power Committee was there upon constituted under the chairmanship of Union Welfare Minister which has held five meetings.
At the meeting held on 13th December, 1995, the committee noted the urgency of framing a scheme in the light of the Supreme Court's order granting extension of time upto 31st Dec. 1995 only In presence of the recommendations
of the High Power Committee a small Committee under the chairmanship of Shri Asiam Sher Khan, MOS (PMO &W) has formulated the scheme in terms of the directions given by the Supreme Court as referred to above.
WHEREAS the aforesaid scheme was approved by the CentralWa Council at its meeting held on 22.12.1995.
Now therefore, the scheme formulated pursuant to, and in compliance with the aforesaid directions of the Hon'bie Supreme Court is as follows
1 . The Scheme shall be called the scheme for remuneration to lmams and Muazzins 1995.
2. The Scheme shall come into force on 1 st Dec.1 993.
3. The Scheme shall apply to the following categories of Mosques
(a) Mosques which are under the direct management of a board of Wakfs established under the Wakf law for the time being in force.
(b) Mosques which are registered with a Board of Wakfs established under the wakf law for the time being in force and are under the control / management of Mutwallis of various wakfs.
Provided that the Scheme shall not apply to the following categories of Mosques :-
(i) Mosques under the control or management of the Government except as provided in Pare 7.
(ii) Mosques which are not registered with the Wakf Board and are managed by local inhabitants.
(iii) Mosques which are not managed either by Mutawailis or the Muslims of the locality
(iv) Mosques not managed by members of Islamic faith.
Categories of lmams
4. According to nature of duty performed by them, Imams can be either full time / part time or honorary.
(a) Full Time 1mams.
In case of full time lmams, the qualification and the remuneration shall be on the lines of those adopted by the Punjab and Haryana Wakf Board. The Punjab and Haryana scheme is in Annexure.
(b) Part time and Honorary 1mams
The payment of remuneration to part time 1mams with comparable qualifications could be upto a maximum of 50 percent payable to the full time ]mams. The State Wakf Board shall consider payment of remuneration and allowances
to Honorary lmams as follows
(i) lmams who lead only Friday prayers that is once in a weak, may be ,paid honorarium @ Rs. 50/- per prayer.
(ii) Such Honorary lmams who lead all the five prayers on a regular basis and are willing to accept may be paid honorarium @ Rs. 400, Rs. 500. Rs. 600 per month, depending whether they are Nazara, Hafiz or Alim.
(iii) Such Honorary lmams who do no lead ail the five prayers regularly may be paid a honorarium @ Rs. 20/- per day irrespective of the number of prayers they lead.
Provided that the appropriate Board of Wakf may, in respect of mosque which are small or are in the rural areas for have no source of income, fix such rates of remuneration for Imams and Muazzins of such a mosque until that
mosque is able to find out ways and means to raise its income as may be sufficient to pay remuneration at the rate mentioned in (a) or as the case may be, (b) above. Acceptance of remuneration under the scheme
In all the above mentioned categories ( pares 5(a) and (b) , the acceptance of the above remuneration will be on voluntary basis.
Mosque under control of Govt.
7. The remuneration suggested in pare 5 above shall be followed for lmams of Musques under the control of the Government in cases where they have no independent income.
8. The appropriate Board of Wakfs may determine quantum of remuneration to various categories,of lmams taking into account, among others, the following factors:
(a) Whether the mosque is located in urban or rural area.
(b) Existing mode of payment as also the quantum, if the payment is in kind, whether the same can be quantified.
(c) Qualification of lmams.
(d) Income of the wakf in which the mosque is comprised.
(e) Income of the wakf in which the mosque is comprised.
(f) Collection/donation made for the lmam.
(g) Grants received from any source for the purpose.
(h) WhethertheWakf deed provides forspecified sources of payment to the Imams.
(i) Whether lmam is full-time, part-time or honorary. Whether Imam has any known source of income.
(k) Any other factor relevant to the local situation.
9. 11) The responsibility for implementation of this Scheme shall be on the appropriate Board of Wakfs.
(2) The appropriate Board of Wakfs shall harness necessary resources in accordance with powers and responsibilities vested with it under the provisions of the Wakf Law for the time being in force.
Board of Ambala Cant.
Ref No. 135 Ed / C /33/11-598-603 dated 22.1.92
Afterconsidering the representation of the lmams of all the mosques which are being'managed by the Punjab Wakf Board, the Administrator of the Board has allowed the increments in salary as follows and this scale comes into force from 1-12-1991.
Scale Medical Allowenced
lmam Alim 1000-1 5-1150-201350-25-1600 Rs. 30/-
Imam Hafiz 950-15-1100-20-1300-25-1550 Rs. 30/-
lmam Nazirah 850-15-1000-20-1200-25-1400 Rs. 30/-
Moazzin '800-15-950-20-1150-25-1400 Rs. 30/-
Note (1) Above scale includes dearness and others allowance. In future, there shall be no increment relating to Dearness and other allowances and no application in this regard shall be entertained.
Note (2) This scale would be given to Hafiz only for six months i.e. 31 - 5-92, thereafter this scale would be given only to persons who have memorised and are able to recite the entire Holy Book in the Namaz of Taravih during
the Holy month of Ramzan. There fore all the Imams of Hafiz grade are directed to prepare themselves for the same. The committee appointed by the Board would judge the competence of the Hafiz and would report to the Board.
Copy for information to.
Secretary Punjab Wakf Board.
(i) Concerned lmams.
(ii) Concerned Moazzins
(iii) Guide File
(iv) P.A. to secretary
(v) P.A. to Administrator
(vi) All Officer and state
(vii) All State offices.