A SOCIO-LEGAL INQUIRY INTO MANAGEMENT AND DEVELOPMENT OF AWQĀF IN : CHALLENGES AND PROSPECTS

BY

MD FAZLUL KARIM

A thesis submitted in fulfillment of the requirement for the degree of Doctor of Philosophy in Law

Ahmad Ibrahim Kulliyyah of Laws International Islamic University Malaysia

NOVEMBER 2016

ABSTRACT

This research is an attempt to respond to the pressing needs to revive and explore the prospects of awqāf in Bangladesh that has not been seen in any published doctoral dissertations on this area in the last few decades. awqāf in Bangladesh represents a sector with huge potentials for welfare oriented developments and the benefits of unprivileged section of the population. Aligned with its specific research objectives the study seeks to explore the challenges that the waqf administration in the country is now facing. Several research hypotheses were set questioning the suitability of the Waqf Ordinance 1962, which has been thoroughly examined. These were set in order to check for any possible lacuna and loopholes that may have led to handle the administration and management of the waqf institutions inefficiently in the country in question. Relevant data were collected for the analysis of both from primary and secondary sources, and existing relevant literatures have been reviewed. This study seeks to demonstrate that despite huge potentials and prospects for welfare based developments, awqāf in Bangladesh remained largely untapped for diverse challenges consisting legal and administrative hurdles. Attempts are also made in this study to explore the extent of serious lacking in efficiency mainly in matters related to the administration and management of waqf in Bangladesh that have led waqf properties and assets to remain open to misuse and mismanagement. This includes inter alia, shortage of competent personnel to administer waqf entities, illegal occupation of waqf properties, leasing and renting of waqf properties at a lower rate, and misappropriation of waqf funds. As a result, the institution of waqf in Bangladesh faces a stagnant situation due to which many waqf properties remained underutilised or even idle generating no yield. The study argued that the present legal and regulatory framework is inadequate for the proper development of waqf, and as such an appropriate legal framework would pave the way for exploiting the fullest potentials of awqāf. This research finds that there is a pressing need to work on reforming and developing the waqf establishment in Bangladesh from legal and regulatory framework as well as the administrative set up of the waqf administration, which is expected to contribute as stepping stones for further research and stimulate future researchers to come up with innovative ideas for the developments of awqāf in Bangladesh. The research also suggests ways to resolve issues related to effective management of awqāf in Bangladesh jurisdiction. Given that, the role of awaqf in poverty alleviation and prospects for cash waqf in Bangladesh has been duly pointed out. This study provides valuable policy recommendations which are expected to be useful to the appropriate policy makers in their efforts to administer and manage these important institutions efficiently and sustainably. It also recommends ways for revitalising awaqf such as enacting a new Waqf Act, developing urban waqf, introducing waqf bond, collaborating with other Muslim countries, establishing a national waqf advisory board, educating mutawallis and providing them appropriate training, enhancing staff benefits, establishing waqf tribunal, conducting a national waqf survey, establishing a shari`ah board, investing waqf properties in real estate and commercial building, developing statistics/database for the family waqf, democratising and decentralising waqf administration, setting-up guidelines and legislations for managing darghas and takias, initiating cash waqf policy, developing Mosques properties, and establishing research divisions.

ii iii APPROVAL PAGE

The thesis of Md Fazlul Karim has been approved by the following:

______Syed Khalid Rashid Supervisor

______Muhammad Abdurrahman Sadique Co-supervisor

______Sharifah Zubaidah Syed Abdul Kadir Internal Examiner

______M. Afzal Wani External Examiner

______Muhammad Syukri Salleh External Examiner

______Abdul Razak Sapian Chairman

iv DECLARATION

I hereby declare that this thesis is the result of my own investigations, except where otherwise stated. I also declare that it has not been previously or concurrently submitted as a whole for any other degree at IIUM or other institutions.

Md Fazlul Karim

Signature …………………………………… Date ……………………..

v COPYRIGHT INTERNATIONAL ISLAMIC UNIVERSITY MALAYSIA

DECLARATION OF COPYRIGHT AND AFFIRMATION OF FAIR USE OF UNPUBLISHED RESEARCH

A SOCIO-LEGAL INQUIRY INTO MANAGEMENT AND DEVELOPMENT OF AWQAF IN BANGLADESH: CHALLENGES AND PROSPECTS

I declare that the copyright holder of this thesis is Md Fazlul Karim

Copyright © 2016 by Md Fazlul Karim. All rights reserved.

No part of this unpublished research may be reproduced, stored in a retrieval system, or transmitted, in any form or by any means, electronic, mechanical, photocopying, recording or otherwise without prior written permission of the copyright holder except as provided below.

1. Any material contained in or derived from this unpublished research may only be used by others in their writing with due acknowledgement.

2. IIUM or its library will have the right to make and transmit copies (print or electronic) for institutional and academic purposes.

3. The IIUM library will have the right to make, store in a retrieval system and supply copies of this unpublished research if requested by other universities and research libraries.

By signing this form, I acknowledged that I have read and understand the IIUM Intellectual Property Right and Commercialization policy.

Affirmed by Md Fazlul Karim

……………………………. ……………….. Signature Date

vi

Dedication

To

The departed souls of my parents,

Moulvi Rusmat Ali and Masuma Khatun

And those who care about

Waqf.

vii ACKNOWLEDGMENTS

Alhamdulillah, wassalaatu wassalamu ‘ala Rasulillah! It is only due to infinite mercy and graces of Allah s.w.t. that I was able to undertake this research despite innumerable challenges faced throughout the research period. Without His grace this work would not have been accomplished. Then I would first like to record my profound gratitude and deepest appreciations for Professor Dr. Syed Khalid Rashid, Professor of Law at the Ahmad Ibrahim Kulliyyah of Laws (AIKOL) and the Founder Director of the International Center for Waqf Research (ICWR), International Islamic University Malaysia (IIUM), for supervising me with utmost patience and compassion throughout this research. He guided me like a teacher, disciplined me like a trainer and loved me like a father. I am deeply thankful and grateful for having him as my supervisor who is considered worldwide an authority on waqf affairs. May Allah’s infinite mercy surround him always! I am also deeply grateful to Assoc. Prof Dr. Muhammad Abdurrahman Sadique for his vital assistance during this study. My profound gratitude goes to my post-viva supervisor Assoc. Prof Dr. Sharifah Zubaidah, the Director of the International Centre for Waqf Research (ICWR) and Prof Dr. Abdul Haseeb Ansari, the Deputy Dean (Postgraduate) of AIKOL, for their meticulous attention to details and invaluable guidance during the final stage of submission of this work. My heartfelt appreciations go to all my friends and colleagues including, but not limited to, Dr. Wahid Murad, Dr. Nowshad Amin, Dr. Shabiul , Dr. Tariqul Islam, Dr. Osmani, Major (Rtd) Abu Sayed, who stood by my side and helped me in one way or other during this undertaking. I owe a great deal to my father in law Dr. Abu Bakr Rafique and Uncle Dr. Abu Umar Faruq, my beloved wife Rumman and my three sons-cum-little-friends Midrar, Israr and Iqrar for their encouragement, motivation and prayers. My deepest gratitude go to my eldest brother Sazzadul Karim who himself stood First Class First in his MSC from University and ever since became my dream man for academic excellence, to my second brother Engineer Mumtazul Karim who helped me a great deal in my data collection from Bangladesh, to my third brother who is more a friend to me than a brother and was never unavailable whenever I was in need of his help despite his busy schedule in his managerial position in a company, my younger brother Faizul Karim whom I always respect for his mature opinion and company, finally my two gorgeous sisters Marhuma and Mozeza who relentlessly prayed for my wellbeing and were the sources of calmness for my heart and soul during this undertaking and always. May Allah (s.w.t) bless them all! Last, but by no means least, I am ever grateful to my employer during this study, Multimedia University (MMU) Cyberjaya, Malaysia for allowing me to pursue my Ph.D while teaching there and for providing me with all the incentives and motivation during my Ph.D. research. I am indebted in many ways to my friends and colleagues in MMU, namely Dr. Sonny, Dr. Bahma and Dr. Shereen Khan, among others, for their support and encouragements. As the author of this work I am fully aware of my imperfections more than anyone else. Any error or omission that might have been committed in this work is, however, only mine for which I seek the indulgence of all. Wa Ma Taufiqi Illa Billah!

viii TABLE OF CONTENTS

Abstract ...... ii Abstract in Arabic ...... iii Approval Page ...... iv Declaration ...... v Copyright ...... vi Dedication ...... vii Acknowledgments ...... viii Table of Contents ...... ix List of Tables ...... xvii List of Figures ...... xviii List of Cases ...... xix List of Statutes ...... xxi List of Abbreviations ...... xxii

CHAPTER ONE : INTRODUCTION ...... 1 1.1 Bangladesh and Awqāf: Preliminary Remarks ...... 1 1.2 Beginning of Legislative Control of Awqāf in Bangladesh ...... 2 1.3 Census of Awqāf in Bangladesh ...... 3 1.4 Waqf Administration under the Ministry of Religious Affairs ...... 4 1.5 Short-staffed Administration ...... 5 1.6 Registration Status ...... 6 1.7 Disputes Settlement ...... 6 1.8 Suitability of the Waqf Ordinance 1962 to the Current Needs ...... 7 1.9 Prospects of Awqāf in Bangladesh ...... 7 1.10 Objective of this study ...... 8 1.11 Hypothesis ...... 9 1.12 Research Methodology ...... 11 1.13 Scope of the study ...... 12 1.14 Limitations of the Study ...... 13 1.15 Literature Review ...... 14 1.15.1 Ph.D. Thesis ...... 14 1.15.2 Government Reports ...... 15 1.15.3 Ordinance ...... 16 1.15.4 Books ...... 17 1.15.5 Chapter in Books ...... 23 1.15.6 Administrative Reports ...... 26 1.15.7 Articles in Journals ...... 29 1.15.8 Articles in News Papers ...... 36 1.15.9 Articles in News Magazines...... 37 1.15.10 Conference Papers ...... 38 1.15.11 Some NGO Research Papers that Partly Discuss Awqāf in Bangladesh...... 53 1.15.12 Online Materials and Resources...... 57 1.16 Summary and Conclusion...... 58

ix

CHAPTER TWO : HISTORICAL ACCOUNT OF LEGISLATIVE DEVELOPMENT AND ADMINISTRATION OF AWQĀF IN BANGLADESH .. 61 2.1 Introduction...... 61 2.2 Awqāf in Bangladesh: Tracing the History ...... 61 2.2.1 Administration of Awqāf During Muslim Rulers ...... 62 2.2.1.1 Sultan Muizuddin Sam ...... 63 2.2.1.2 Sultan Alauddin ...... 63 2.2.1.3 Emperor Sher Shah ...... 64 2.2.1.4 Emperor Akbar ...... 64 2.2.1.5 Emperor Shahjahan ...... 65 2.2.1.6 Emperor Aurangjeb ...... 65 2.2.1.7 Emperor Iltutmish ...... 66 2.2.1.8 Emperor Muhammad Ali Shah ...... 66 2.2.1.9 The Imperial Officers ...... 67 2.2.1.10 Power of Mutawallis under the Emperors ...... 68 2.2.1.11 Role of the Qazis during Muslim Rule ...... 69 2.2.1.12 The Qazi system during Muslim rule ...... 70 2.2.1.12.1 Position of a Qazi in Shariah ...... 70 2.2.1.12.2 Appointment of Qazis ...... 71 2.2.1.12.3 Jurisdiction and function of Qazis on Awqāf ...... 71 2.2.2 Awqāf Administration During British Rule ...... 72 2.2.2.1 The East India Company and the beginning of British influence ...... 72 2.2.2.2 Waqf administration under the Regulation III of Bengal Code of 1810 ...... 75 2.2.3 Evolution of Awqāf legislations in the Greater Indian Subcontinent78 2.2.3.1 Waqf legislations in undivided Indian Subcontinent from 1810 to1947 ...... 79 2.2.3.1.1 Regulation III of Bengal Code of 1810 ...... 79 2.2.3.1.2 Regulation VI of Madras Code of 1817 ...... 79 2.2.3.1.3 Religious Endowment Act 1863 (No. 20 of 1863) ..... 80 2.2.3.1.4 Hussainabad Endowment Act 1878 (No. 15 of 1878) 80 2.2.3.1.5 Charitable Endowments Act 1890 (No. 6 of 1890) .... 80 2.2.3.1.6 Civil Procedure Code 1908 (No. 5 of 1908) ...... 80 2.2.3.1.7 Mussalman Waqf Validating Act 1913 (No. 6 of 1913) ...... 81 2.2.3.1.8 Charitable and Religious Trusts Act 1920 (No. 14 of 1920) ...... 81 2.2.3.1.9 Mussalman Waqf Act of 1923 (No. 42 of 1923) ...... 82 2.2.3.1.10 Bengal Waqf Act 1934 (No. 13 of 1934) ...... 82 2.2.3.1.11 Mussalman Waqf (Bombay Amendment Act 1935 (No.18 of 1935) ...... 82 2.2.3.1.12 U.P.Muslim Waqf Act 1936 (No. 13 of 1936) ...... 83 2.2.3.1.13 Dargah Khwaja Shaheb Act 1936 ...... 83 2.2.3.1.14 Hyderabad Endowment Regulation, 1939 ...... 83 2.2.3.1.15 Bihar Waqf Act 1947 ...... 83 2.2.3.2 Division of the Subcontinent in 1947 into Two Countries, namely India and ...... 84

x 2.2.4 Waqf Legislations in force in East and West Pakistan Between 1947 to 1971 ...... 84 2.2.4.1 Mussalman Waqf Validating Act 1913 ...... 84 2.2.4.2 Mussalman Waqf Act of 1923 ...... 84 2.2.4.3 Mussalman Waqf (Sindh Amendment) Act 1935 ...... 85 2.2.4.4 Mussalman Waqf (Bombay Amendment) Act, 1935 ...... 85 2.2.4.5 The Music in Muslim Shrines Act, 1942 ...... 85 2.2.4.6 NWFP Charitable Institutions Act 1950 ...... 86 2.2.4.7 Punjab Muslim Auqaf Survey Act 1950 ...... 86 2.2.4.8 Punjab Muslim Auqaf Act 1952 ...... 86 2.2.4.9 West Pakistan Ordinance No.21 of 1959 – W.P. Waqf Properties Ordinance ...... 87 2.2.4.10 West Pakistan Ordinance, 28 of 1961-W. P. Waqf Properties Ordinance ...... 87 2.2.4.11 Waqfs Ordinance, EP Ordinance 1 of 1962 .. 87 2.2.4.12 Waqf Legislations Relevant and Applied in Bangladesh from1971 to Date ...... 87 2.2.4.13 The Religious Endowments Act 1863 (No. 20 of 1863) ..... 88 2.2.4.14 Mussalman Waqf Validating Act 1913 (No. 6 of 1913) ...... 88 2.2.4.15 Mussalman Waqf Act No. 42 of 1923 ...... 88 2.2.4.16 Bengal Waqf Act No. 13 of 1934 ...... 88 2.2.4.17 East Bengal Act No. 22 of 1951 ...... 89 2.2.4.18 East Bengal Act No. 12 of 1952 - East Bengal board of Waafs (Validation) Act,1952 ...... 89 2.2.4.19 The Waqfs Ordinance, 1 of 1962 ...... 89 2.2.4.20 Islamic Foundation Act 1975 - No. 17 of 1975 ...... 90 2.2.4.21 The Shahi Masjid Ordinance1986-No.2 of 1986 ...... 90 2.2.4.22 Waqf Legislation Currently in Force in Bangladesh ...... 90 2.2.5 The Present Status of Administration ...... 90 2.2.5.1 Types of Waqf Properties in Bangladesh ...... 91 2.2.5.2 Unregistered Waqfs ...... 91 2.2.5.3 The Problem of Adjudication ...... 92 2.3 Conclusion ...... 92

CHAPTER THREE : A SOCIO-LEGAL PROFILE OF AWQĀF PROPERTIES IN BANGLADESH ...... 95 3.1 Introduction...... 95 3.2 Statistical overview of Awqāf in Bangladesh; ...... 96 3.2.1 Number of Waqf Estates by Type of Registration ...... 96 3.2.2 Beneficiaries of the Waqf Estates ...... 97 3.2.3 Mode of Management of the Waqf Estates ...... 99 3.2.4 Land Possession, Income (in Taka/BDT) and Expenditure of the Waqf Estates...... 100 3.2.5 Waqf Estates Not Reporting Land Possession, Income and Expenditure ...... 102 3.2.6 Income Received by the Waqf Estates from Broad Sources ...... 103 3.2.7 Annual Reported Income Received by the Waqf Estates from Land Uses ...... 104

xi 3.2.8 Reported Immovable Properties of the Waqf Estates ...... 106 3.2.9 Reported Income of the Waqf Estates from the Sources Other than Land ...... 108 3.2.10 Reported Annual Income of the Waqf Estates from Immovable Properties except Land ...... 109 3.2.11 Reported Annual Income of the Waqf Estates from Other Sources, Except Immovable Land Properties ...... 111 3.2.12 Reported Annual Expenditure of the Waqf Estates ...... 112 3.3 Nature of Awqāf properties in Bangladesh ...... 114 3.3.1 Immovable Waqf Properties in Land...... 114 3.3.1.1 Agriculture ...... 115 3.3.1.2 Orchard ...... 115 3.3.1.3 Ponds and Tanks ...... 115 3.3.2 Immovable Waqf Properties Other than Land ...... 116 3.3.2.1 Mosques ...... 116 3.3.2.2 Madrasah, Maktab, Schools and Colleges ...... 116 3.3.2.3 Eidgah and Open Space ...... 117 3.3.2.4 Graveyard and Dargah ...... 117 3.3.2.5 Orphanage ...... 118 3.3.3 Movable Waqf Properties ...... 118 3.3.3.1 Cash Waqf ...... 119 3.3.3.2 Movable Properties Other than Cash ...... 119 3.3.4 Some Unique Waqf and Waqf-like Institutions in Bangladesh ...... 120 3.3.4.1 Shrine (Dargahs and Mazars) based Waqfs in Bangladesh . 120 3.3.4.2 Islami Bank Foundation ...... 121 3.3.4.2.1 Poverty Alleviation ...... 121 3.3.4.2.2 Education ...... 121 3.3.4.2.3 Healthcare ...... 122 3.3.4.2.4 Humanitarian Services ...... 122 3.3.4.2.5 Relief and Rehabilitation ...... 122 3.3.4.2.6 Cultural and Da’wa Activities ...... 122 3.3.4.3 Islami Bank Hospital ...... 123 3.3.4.4 Ibn Sina Trust ...... 123 3.3.4.5 Chashi Kollyan Shomiti ...... 124 3.4 Conclusion ...... 125

CHAPTER FOUR : CHALLENGES ENCOUNTERED BY THE WAQF ADMINISTRATION IN BANGLADESH ...... 127 4.1 Introduction ...... 127 4.2 Administration and Management Related Problems ...... 127 4.2.1 Human Resource and Manpower ...... 128 4.2.1.1 Number of Surveyor cum Auditor per District ...... 128 4.2.1.2 Number of Waqf Estates per District to Be Managed ...... 129 4.2.1.3 Huge Gap of Ratio between Manpower and Responsibility 133 4.2.1.4 Operational Inefficiency in Settling Waqf Disputes, Lack of Transportation and Equipments ...... 133 4.2.2 Mutawalli Related Issues ...... 135 4.2.2.1 Lack of Qualification; and Integrity of the Mutawallis ...... 135 4.2.2.2 Lack of Training ...... 137

xii 4.2.2.3 Irregular Payment of Annual Contribution ...... 138 4.2.2.4 Irregularity in Submission of Accounts of Waqf Fund and Audit Reports ...... 138 4.2.2.5 Remuneration ...... 141 4.2.2.6 Lack of Progressive and Innovative Ideas ...... 142 4.2.2.7 Wakifs’ Objectives Marred by Selfishness ...... 143 4.3 Waqf Property Related Problems ...... 144 4.3.1 Illegal Occupation of Waqf Properties ...... 144 4.3.2 Requisition and Government Annuity ...... 145 4.3.3 Non Enrolment ...... 145 4.3.4 Loss Due to Natural Disaster ...... 147 4.3.5 Unauthorised Alienation and Transfer ...... 147 4.3.6 Small and Insignificant Size ...... 149 4.3.7 Dargah and Mazar (Shrine) ...... 149 4.3.7.1 Lack of Control of the Waqf Administration over Dargah and Mazars ...... 150 4.3.7.2 Lack of Transparency in the Income and Expenditure ...... 150 4.3.7.3 Irregular or Non-contribution ...... 151 4.3.7.4 Activities Contradictory to the Core Values of Islam ...... 151 4.4 Legal Hurdles ...... 152 4.4.1 Power of the Administrator under the Ordinance ...... 153 4.4.2 Backlog of Cases and Lengthy Process of Waqf Disputes Resolution ...... 159 4.4.3 Action against Trespass and Illegal Occupation ...... 159 4.4.4 Lack of Legal Representation of the Waqf Administration at the District Level ...... 160 4.4.5 Difficulties in Applying Certain Provisions of the Ordinance ...... 160 4.4.6 Action against Misappropriation and Breach of Trust ...... 162 4.4.7 Absence of Provisions in the Waqfs Ordinance 1962 Relating to Development of Awqāf ...... 162 4.4.8 Action against Misappropriation of Waqf’s Compensation Payments ...... 164 4.4.9 Trial of Offences Involving Waqfs ...... 164 4.4.10 Bar to Suits against Decision of the Administrator ...... 165 4.4.11 Effect of Order Inconsistent with the Ordinance ...... 165 4.5 Financial and Budgetary challanges ...... 165 4.5.1 Insufficient Budget ...... 166 4.5.2 Uncollected Arrears ...... 166 4.5.3 Insufficient Annual Contribution ...... 167 4.5.4 Waqf Fund ...... 168 4.6 Conclusion: ...... 168

CHAPTER FIVE : CASH WAQF IN BANGLADESH AND THE NEED FOR MODERN AND INNOVATIVE APPROACH TOWARDS AWQĀF: LESSONS FROM SELECTED COUNTRIES ...... 170 5.1 Introduction...... 170 5.2 Definition of Cash Waqf ...... 171 5.3 Main Features of Cash Waqf...... 172 5.4 Economic Benefits of Cash Waqf ...... 174

xiii 5.5 Current Practices of Cash waqf in Bangladesh ...... 176 5.5.1 Cash Waqf as Financing Means of Islami Banks in Bangladesh ... 176 5.5.2 Operational Guidelines of Cash Waqf Based Products Adopted by Some Islami Banks in Bangladesh ...... 178 5.5.2.1 Cash Waqf based ‘Mudaraba Deposit Account’ ...... 178 5.5.2.2 The Objectives of Cash Waqf Mudaraba Deposit Accounts (CWMDA) ...... 178 5.5.2.3 Cash Waqf in Perpetuity and Mutawalli’s Discretions ...... 179 5.5.2.4 CWMDA Created with Lump Sum Amount or by Installment ...... 180 5.5.2.5 Issuance of CWMDA Certificate and Receipt ...... 180 5.5.2.6 How CWMDA Operates ...... 180 5.5.2.7 Investment in Conformity with Shariah ...... 181 5.5.2.8 High Rate of Investment Income ...... 181 5.5.2.9 Distribution of Usufruct to the Beneficiaries ...... 181 5.5.2.10 Profit Loss Sharing ...... 182 5.5.2.11 Waqf Management Committee ...... 182 5.5.2.12 Readily Available List of Purposes ...... 182 5.5.2.12.1 Family Rehabilitation ...... 182 5.5.2.12.2 Education, Sports, Da’wa & Culture ...... 182 5.5.2.12.3 Health & Sanitation: ...... 183 5.5.2.12.4 Social Service ...... 183 5.5.2.13 Arrangement after Serving the specific purpose or Death of Wāqif ...... 183 5.5.2.14 Liabilities and Rights of the Bank ...... 184 5.6 Application of Cash Waqf in Selected Countries ...... 185 5.6.1 Bahrain ...... 185 5.6.1.1 Objectives of the Waqf Fund ...... 185 5.6.1.2 Contributors of Waqf Fund ...... 186 5.6.1.3 Waqf Fund Sponsored Programmes ...... 186 5.6.1.4 Human Capital Development in Islamic Finance ...... 186 5.6.1.5 Research and Collaboration with Other Nations ...... 187 5.6.1.6 Curriculum Development ...... 187 5.6.2 Indonesia ...... 188 5.6.2.1 DDR Cash Waqf Fund ...... 188 5.6.2.1.1 Healthcare ...... 188 5.6.2.1.2 Education ...... 189 5.6.2.1.3 Economic Empowerment and Social Welfare ...... 189 5.6.3 Kuwait ...... 190 5.6.3.1 Objectives of Kuwait Awqāf Public Foundation (KAPF) ... 190 5.6.3.2 Waqf Fund Managed by a Board of Directors ...... 191 5.6.4 Malaysia ...... 191 5.6.4.1 Public Response to cash waqf in Malaysia ...... 192 5.6.4.2 Potential for Cash Waqf in Malaysia ...... 192 5.6.4.3 Cash Waqf Shares and the State Islamic Religious Council (SIRC) ...... 193 5.6.5 Singapore ...... 194 5.6.5.1 Cash Waqf by Salary Deduction ...... 194 5.6.6 Turkey ...... 195

xiv 5.6.6.1 Public Facilities Supported by Cash Waqf ...... 195 5.6.6.2 Financial Services Provided by Cash Waqf ...... 196 5.6.6.3 Revenue Earned by Cash Waqf ...... 196 5.6.6.4 Cash Waqf and the Debate on Interest ...... 196 5.7 Role of Cash Waqf in Poverty Alleviation ...... 197 5.8 Conclusion ...... 198

CHAPTER SIX : PROSPECTS OF AWQĀF IN BANGLADESH: RECOMMENDATIONS AND CONCLUSION ...... 200 6.1 Introduction...... 200 6.2 Recommendations for Development of Awqāf in Bangladesh ...... 200 6.2.1 Amendments to the Waqf Ordinance 1962...... 200 6.2.2 Provisions to be Reviewed and Amended ...... 201 6.3 Human Resource and Manpower Development ...... 202 6.3.1 Manpower Increase ...... 202 6.3.2 Education and Training ...... 204 6.3.3 Establishment of District Level Offices of Waqf Administration .. 205 6.4 Conducting Nationwide Waqf Census Every Ten Years ...... 205 6.5 Compulsory Registration of un-enrolled Awqāf ...... 206 6.6 Regular Inspection and Supervision of Awqāf ...... 207 6.7 Recovery and Prevention of Illegally Occupied Awqāf ...... 209 6.8 Expediting Dispute Resolution ...... 209 6.9 Establishing Stricter Control of the Waqf Administration over Dargah and Mazar (Shrines.) ...... 210 6.10 Development of Awqāf ...... 212 6.10.1 Urban Waqf Properties ...... 212 6.10.2 Rural and Agricultural Awqāf ...... 213 6.10.3 Enactment and Amendment of Statutory Provisions Relevant to Development of Awqāf ...... 213 6.11 Development of Waqf Fund ...... 214 6.11.1 Increasing the Amount of Mandatory Contribution ...... 215 6.11.2 Tri-monthly Contribution instead of Annual Contribution ...... 216 6.11.3 Ensuring Regular Collection of Contribution ...... 216 6.11.4 Non-payment to be made a Punishable Offence ...... 216 6.11.5 Utilisation and Application of Waqf Fund ...... 217 6.11.6 Regular Auditing of Waqf Fund ...... 218 6.12 Addressing the Lack of Awareness; ...... 219 6.12.1 Introduction of Waqf as a Subject in the Text Book ...... 219 6.12.2 Promotion of Waqf through Electronic and Printing Media ...... 220 6.12.3 Highlighting and Discouraging Abuse and Misuse of Awqāf ...... 220 6.12.4 Involving the Banks and other Relevant Institutions in the Development Process of Awqāf ...... 221 6.13 Steps to Be Taken By the Government for Revitalisation of Awqāf ...... 221 6.13.1 Need for a New Waqf Act ...... 221 6.13.2 Issuance of Waqf Bond ...... 223 6.13.3 Collaboration with Other Countries ...... 223 6.13.4 Establishment of a National Waqf Advisory Board (NAWAB) .. 224 6.13.5 Increasing Staff Benefit ...... 225 6.13.6 Waqf Tribunal...... 225

xv 6.13.7 Comprehensive Waqf Survey/ Census ...... 226 6.13.8 Establishment of a Shariah Board...... 226 6.13.9 Need for Investment of Waqf Properties in Real Estate and Commercial Buildings ...... 227 6.13.10 Need to Develop Statistics of the Family Waqf ...... 227 6.13.11 Democratisation and Decentralisation of Waqf Administration 228 6.13.12 Setting-up Guidelines/Legislations for Managing Darghas and Mazars ...... 228 6.13.13 Need for Initiating and Promoting Cash Waqf Policy ...... 229 6.13.14 Development of Mosque Properties ...... 229 6.13.15 Establishment of Research Division ...... 230 6.14. Conclusion ...... 230 6.14.1. Response to the Hypotheses Addressed in the Thesis ...... 230 6.14.2. Achievement of the Objectives of the Thesis ...... 232 6.14.3. Suggestions for Further Research ...... 240

BIBLIOGRAPHY ...... 244

APPENDIX I : WAQFS ORDINANCE, 1962 ...... 263

APPENDIX II: PUBLICATIONS ...... 293

APPENDIX III: QUESTIONNAIRE ...... 294

APPENDIX IV: LIST OF RESPONDENTS ...... 295

GLOSSARY ...... 296

xvi LIST OF TABLES

Table No. Page No.

4.1 Dhaka Division ...... 129

4.2 Chittagong Division ...... 129

4.3 Rajshahi Division ...... 130

4.4 Khulna Division ...... 130

4.5 Sylhet Division ...... 131

4.6 Division ...... 131

4.7 Decreasing Trend in Enrolled Awqāf ...... 132

4.8 Annual Income of the Waqfs Administration for a Period of Five Fiscal Years .... 166

6.1 Manpower of Waqf Administration in Bangladesh ...... 202

6.2 District Level Waqf Inspector and Auditor’s Offices ...... 207

xvii

LIST OF FIGURES

Figure No. Page No.

3.1 Number of Waqf Estates in Bangladesh by the Type of Registration ...... 96

3.2 Beneficiaries of the Waqf Estates in Bangladesh...... 97

3.3 Number of Waqf Estates by Mode of Management...... 99

3.4 Land Possession by the Waqf Estates (in acres) and their Income and Expenditure100

3.5 Waqf Estates Not Reporting Land Possession, Income and Expenditure...... 101

3.6 Annual Income Received by the Waqf Estates from Broad Sources...... 102

3.7 Average Annual Income Received by the Waqf Estates from Land Uses ...... 104

3.8 Reported Immovable Properties of the Waqf Estates...... 106

3.9 Reported Income of the Waqf Estates from the Sources Other than Land ...... 108

3.10 Reported Annual Income of the Waqf Estates from Immovable Properties, Except Land ...... 109

3.11 Reported Annual Income of the Waqf Estates from Other Sources, Except Immovable Land Properties ...... 111

3.12 Average Annual Expenditure of the Waqf Estates (by Category of Expenditure) 112

xviii LIST OF CASES

Abdullah Al Mamun v. Secretary Ministry of Land, DLR, Vol.10, 2004, 173. A.K.M Abdullah Harun v. Additional Distric Judge, DLR, Vol.9, 2001, 241 Abdul Khaleq Sawdagar and Abdul Gani v. Md. Mahbubey Alam, DLR, Vol. A.K.M Abdullah Harun v. Additional District Judge, DLR, Vol. 24, 2001, 201. Abdul Mazid Khan v. Ajahar Ali Howlader, DLR, Vol.24, 2003, 2004. Anul Khaleque Shah v. Administration of Waqfs, DLR, Vol. 49, 1196, 427. Afazuddin Mollah v. Mobarak Ali Munshi, DLR, vol 46, 1193, 587. Abdul Malek Sawdagar v. Md. Mahbubey Alam, DLR, vol.57, 2004, 19. A.J.M Asadullah v. A.K.M Ahmad-ul-Huq, DLR, Vol.22, 1970, 781. Abdur Rahim v. Kaptan Mia, DLR, Vol. 25, 1970, 291. Abu Syed Rashid Bakht v. Mukhtar bakht Mazumdar, DLR, Vol.19, 1966, 65. AKM Abdullah Harun v. Additional district Judge, Vol.56, 2001, 654. Azizul Hoq (Md) v. Administration of Waqfs, DLR, Vol.54, 2001, 561. Abdur Rashid Lahi v. Mohammad Yunus Gazi, Vol.40, 1988, 429. Abdul Jabbar v. Attahar Ali, DLR, Vol.17, 1965, 247. Abdul Gani Mutwali v. Md. Mahbubey Alam, DLR, Vol. 10, 2004, 9. Aminul Haque Shah v. Abdul Wahab Shah Chowdhury, DLR, Vol.4, 1999, 369. Bangladesh Biman Air Lines Corporation v. Chairman Second Labour Court, DLR, Vol.52, 1999, 191. Bangladesh Shilpa Bank v. Md. Anwarul Haque, DLR, Vol. 10, 2003, 15. Bikash Ranjan Das v. The Chairman Second Labour Court, DLR, Vol.29, 1977, Chairman Board of Intermediate and Secondary Education, Jessore v. Md. Amir Hossain, DLR, Vol.56, 2002,25. Chairman, Islamic University v. Nil Mhmud, DLR, vol. 13, 1995, 542. Director of Taxarion & Excise Govt v. Mehdi Ali Khan Panni, DLR, Vol.32, 1978, 138. Dildar Ahmed Choudhury v. farroque Ahmed, DLR, Vol.27, 1975, 138. Forrukh Ahmed v. Nazir Ahmed alias, DLR, Vol. 25, 1970, 226. GM. Jamuna v. Chairman Labour Court, DLR, Vol. 53, 2000, 28. Golam Ather Chowdhury v. The Administration of waqfs, DLR, vol. 36 , 1984 , 203. Golam Ather Chowdhury v. Administration of waqfs, DLR, vol. 36 , 1984 Government of Bangladesh v. Chairman Court of settlement, DLR, Vol.53, 2000, Hafizuddin Ahmed v. M. Aslam Miah, DLR, Vol.8, 2002, 205. Hashi Meah v. Aminul Islam Chowdhury, DLR, Vol.23, 1970,185. Hafizuddin Ahmad v. M Aslam Miah, DLR, Vol.55, 2002, 95. Jamal Uddin Ahmed v. Abdul Haque, DLR, Vol. 55, 2002, 103. Jobayer Hossain v. Noor Hafez, DLR, Vol.56, 2001, 23. Mahbubul Huq v. Md. Kader Munshi, DLR, Vol.52, 1999, 194. Makbulal Haq Khan v. Administration of Waqfs East Pakistan, DLR, Vol.17, 1964. Maulvi Afsar Uddin Haider v. A.M. Mahiuddin, DLR, Vol. 19, 1999, 302. Md. Abdul Hoque v. Md. Abdul Gani alias, DLR, Vol. 5, 2000, 331 Md Abdul jabber v. Asia khatun, DLR, Vol. 28, 1976, 333. Md. Afazuddin Mollah v. Mobarak Ali Munshi, DLR, Vol. 19, 1993, 242.

xix Md. Azizul Hoq v. the Administrator of Waqf, Bangladesh Government, DLR, Vol.22, 2001, 223. Md. Abdul Hoque (Md) v. Md. Abdul Gani Alias, DLR, Vol.52, 2000, 295. Md. Idris Miah v. Haji Abdul Mannan Sarker, DLR, Vol.4, 1998, 18. Md Khurshed Alam v. Amir Sultan Ali, DLR, Vol.21, 1969. Md. Shaukat Ali v. Administration of Waqfs, DLR, Vol. 29, 1977,277. Md Showkat Resbani v. Md Showket osnani, DLR, Vol.35, 1983, 177. Md. Tabarak Ali Sarder v. Al-Haj Md. Hussain Khan, DLR, vol. 23, 2003, 330 Md. Yousuf v. Bangladesh, DLR, Vol. 3, 2005, 5. Mobasher Hossain v. Saidur Rahman, DLR, Vol.55, 2002, 51. Mohammad Ali v. ADC, DLR, Vol.53, 2000, 27. Mokbul Ahmed v. Shamsul Rashid, DLR, Vol. 49, 1996, 18. Mokbul Ahmad Majhi v. Abdul Jalil Chowdhury, DLR, Vol.17, 1964, 35. Moulana Abdul Hannan v. Halima Khatun, DLR, Vol.54, 2000, 159. Moulana Fariduddin Ahmed v. Md. Kolimullah, DLR, Vol.55, 2001, 49. M/S Sekander Jute Bailing Ltd v. Sonali Bank, DLR, Vol.18, 1992, 268. M/s Waagner Biro v. Roushan Ara Begum, DLR, Vol. 25, 1971, 293. Mohammad Abbasuddin v. Province of East Pakistan, DLR, Vol.17, 1964, 54. Mohammad Ali v. Administration of Waqfs, DLR, Vol.2, 1997, 395. M/S. Tanni Knit Wear Limited v. Deputy General Manager, Sonali Bank, DLR, Vol. 2, 1997. Nader All Shettk v. State & other Opposition Party, DLR, Vol.35, 1982,181. Nezamat Ali v. Syed Ahmed Chowdhury, DLR, Vol.38 1984, 45. Nuruzzaman Chowdhury v. Secretary, Education Department, DLR, Vol. 17, 1964, 46. Prov of E. Pakistan v. Idris Mia, DLR, Vol.25, 1971, 299. Serajuddin Shah (Md) v. Secretary Ministry of Religious Affairs, Vol.51, 1999, 479 Sayed Masud Ali v. Md. Asmatullah, DLR, Vol. 31, 1978, 249. Shah Newaz (Md) v. Ahah Wali, DLR, Vol. 54, 2001, 375. Shahinur Alam v. The State, DLR, Vol.23, 2003, 689. Shahidullah (Md) v. Abdus Sobhan Talukder, DLR, Vol.50, 1996, 147. Subash Das Chowdhury v. Sheikh Reazuddin Ahmed Siddique, DLR, Vol. 13, 2003, 682. Surat Ali (Md) v. Administration of waqfs, DLR, Vol.45, 1991, 219. Syed Shah Mohammad Osman Ghani v. Bangladesh Through Secy. M/o. Public Works, DLR, Vol.39, 1987, 451. Tobarak Ali Sikder v. The Administration of Waqfs, DLR, Vol.45, 1992, 70. Yar Ali Khan Chowdhury v. Makbul Ahmed Chowdhury, DLR, Vol.45, 1971, Yar Ali Khan Chowdhury v. Administration of Waqfs Govt of Esat Pakistan, DLR, Vol. 20, 1968, 635. Yusuf (MD) and Anr. v. The Government of the people’s Republic of Bangladesh, DLR, Vol.42 , 1987, 521. Yusuf Chowdhury v. Administration of Waqfs, DLR, Vol. 57, 2004, 739.

xx LIST OF STATUTES

Bengal Waqf Act 1934 Bihar Waqf Act 1947 Charitable and Religious Trusts Act 1920 Charitable Endowments Act 1890 Chittagong Shahi Masjid Ordinance 1986 Civil Procedure Code 1908 Dargah Khwaja Shaheb Act 1936 East Bengal Act 1951 East Bengal Board of Waqfs Act 1952 East Pakistan Waqf Ordinance 1962 Hussainabad Endowment Act 1878 Hyderabad Endowment Regulation 1939 Indian Waqf Act 1995 Islamic Foundation Act 1975 Music in Muslim Shrines Act 1942 Mussalman Waqf (Bombay Amendment) Act 1935 Mussalman Waqf (Sindh Amendment) Act 1935 Mussalman Waqf Act 1923 Mussalman Waqf Validating Act 1913 NWFP Charitable Institutions Act 1950 Punjab Muslim Auqaf Act 1952 Punjab Muslim Auqaf Survey Act 1950 Regulation III of Bengal Code 1810 Regulation VI of the Madras Code 1817 Religious Endowment Act 1863 UP Muslim Waqf Act 1936 Waqfs Ordinance 1962 West Pakistan Waqf Properties Ordinance 1959 West Pakistan Waqf Properties Ordinance 1961

xxi LIST OF ABBREVIATIONS

A C Appeal Cases A E R All England Reports A H After Hijrat (Islamic era counted from the date of migration of the Muslims from Maccah to Madinah). A I R All India Reporter AL J Aligarh Law Journal A P Andhra Pradesh A W R Andhra Weekly Reporter All Allahbad All L J Allahabad Law Journal A J C L Americn Journal of Comparative Law Apr April Art Article Ass Assam Aug August B C Era Before Christ B H C RBombay High Court Reports B L R Bengal Law Reports B S C R Bangladesh Supreme Court Reports Bib Ind Bibliotheca Indica Series BOM Bombay Bom, L R Bombay Law Reporter Boulonis Boulonis Reports Br Mus British Museum C Century C A Civil Appeal C E (A D) Christian Era C J Chief Justice C 1 J Calcutta Law Journal C L R Calcutta Law Reporter C P C Civil Procedure Code C P D Common Pleas Division (England) C W N Calcutta Weekly Notes Cal Calcutta Ch Chancery Ch D Chancery Division C1 Clause C1 & P Clark and Pinnelly Cutt Cuttock Cutt L T Cuttock Law Times d. date D L R Dhaka Law Report Dhak Dhaka Dec December

xxii E I Encyclopaedia of Islam E P Egyptian Pound ed Edition Edw Edward (King) Eli Elizabeth (Queen) f Folio No F B Full Bench F C Federal Court F C R Federal Court Reports Feb February Fn Footnote Fulton Fulton's Reports G G Governor-General G G C Governor-General-in-Council Geo George Govt Government Guj Gujrat H C High Court H L House of Lords (England) H L R C T Hindu Law of Religious and Charitable Trust (Mukherjea B K) Harv L R Harvard Law Review (USA) Hay Hay's Reports Hen Henry (King) Hyd Hyderabad Hyde Hyde's Reports IA Indian Appeals IC Indian Cases I C L Q International and Comparative Law Quarterly ILR Indian Law Reports IMHL Introduction to Modern Hindu Law (Derrett JDm) IOL India Office Library IT R Income Tax Reports (India) J Justice J & K Jammu and Kashmir J A L Journal of African Law J I L I Journal of Indian Law Institute J R A S Journal of Royal Asiatic Society Jan January Jul July Jun June K B D King's Bench Division K L T Kerala Law Times L P A Law of Property Act L Q R Law Quarterly Reports L R Law Reports Lah Lahore Luck Lucknow M Muhammad

xxiii M I A Moore's Indian Appeals M L J Malaysian Law Journal Mad L J Madras Law Journal M P Madhya Pradesh M S Manuscript M S S Manuscript Section Mad Madras Mad H C R Madras High Court Reports Mad W N Madras Weekly Notes Mar March Md Mohammad Mohd Mohammad Mst Mosammat Mt Musammat Mys Mysore n d No date available N 0 C Notes on Cases N W F P North-West Frontier Province Nag Nagpur No. Number Nov November O C Original Civil O J Original Jurisdiction Oct October Or Order Ori Orissa p Page Number P Used for certain reference purposes P C Privy Council P C J Privy Council Judgments P G I Proceedings of the Government of India PH D Consul Proceedings Home Department Consultation PH D Jud Proceedings Home Department Judicial PH D Leg Proceedings Home Department Legislative P H D Proceedings Home Department Misc Rec Miscellaneous Records P H D Proceedings Home Department Misc Ser Miscellaneous Series P H D Pub Proceedings Home Department Public P L D Pakistan Legal Decisions P L R Pakistan Law Reports P 0 C Perry's Oriental Cases Para Paragraph Pat Patna Pat L J Patna Law Journal Pesh Peshawar Prog No. Progression Number Pt Part Pub Publication

xxiv