Agricultural to NA Land Conversion in India: Procedure, Fees and State Rules for 2026

Changing a plot from agricultural to non-agricultural (NA) status is among the most important legal steps in Indian property. Developers planning housing, investors looking at commercial projects and ordinary buyers of a plot all need to understand it, since skipping it leads to legal trouble and a title that cannot be sold with confidence.

This guide covers the full land conversion procedure in India: stage-by-stage steps, documents, fees by state, timelines, and the legal danger of buying land that has not been converted.

Summary: agricultural to NA conversion in India, 2026

Conversion is the legal re-labelling of a plot from agricultural use to NA use. Without it, you cannot obtain a sanctioned building plan, an occupancy certificate, utility connections or a bank loan, and whatever you build may be demolished. The short version for 2026:

• Nearly always required before you build. The conversion order goes by different names: DC conversion in Karnataka, NA order or Sanad in Maharashtra, NALA permission in Telangana. Whatever the name, it is the paper that legally allows non-farm use.
• Charges generally fall between 25 and 50% of guideline or market value in the southern states, and in the north (UP, Haryana) they follow per-square-metre slabs. Stamp duty, registration and consultant fees come extra.
• Reforms in 2025-26 are trimming the paperwork. Maharashtra removed the separate NA permission for land that a sanctioned Development or Regional Plan already shows as non-agricultural (MLRC 2nd Amendment Act, 2025), and swapped the yearly NA assessment for a one-time premium. Karnataka moved DC conversion fully online (DC e-Office / Sakala); if the Deputy Commissioner takes more than 30 days, approval is deemed, and automatic conversion for industries up to 2 acres and for renewable-energy projects (Land Revenue Rules Amendment, 2025).
• Telangana has retired the Dharani portal. NA conversion (NALA) is now handled on the new Bhu Bharati portal, and residential-only plots up to 100 sq m pay no NALA tax.
• Plotted projects need two papers, not one. A DC or NA conversion order is different from a layout approval (BDA/BMRDA/HMDA/DTCP). Ask to see both.
• Conversion does not clean the title. It settles land use only and says nothing on ownership, encumbrances or litigation. Check the 30-year title chain and the encumbrance certificate on their own, and test any property's legal health with LegiScore.

“Myth-bust: land that is in effect sold as plots, but registered as 'agricultural' to save stamp duty, is undervalued. Registrars may reopen such a deal under Section 47-A of the Indian Stamp Act, and the classification may later be cancelled. Far from a shortcut, it is a liability.”

Meaning of agricultural to non-agricultural conversion

Land conversion is the legal procedure that moves land out of the agricultural category into NA use. It is compulsory when farmland is to be put to uses such as:

• Homes and apartment blocks
• Offices, shops and malls
• Factories and warehouses
• Roads, schools and hospitals
• Colleges and religious buildings

State land revenue laws control how land is classified in India. Farmland usually faces limits on sale, transfer and building. Once it is NA, those limits fall away and the owner can use it freely for purposes other than farming.

In deals, such land is often called an NA plot or non-agricultural plot.

Reasons conversion is necessary

There are several solid reasons why the law makes this step compulsory:

1. Permission to build

Municipal and development authorities refuse to sanction plans or building permits while the land is still classified as agricultural. Without conversion you cannot legally get:

• Sanctioned building plans
• Occupancy Certificates (OC)
• Completion Certificates (CC)
• Water and electricity connections

2. Saleable title

Buyers and lenders see unconverted farmland as a serious title risk. Banks commonly decline home loans on it, and so such a property is hard to resell.

3. Property tax and civic services

NA land can receive:

• Assessment for property tax and civic amenities
• Water supply, drainage and waste collection
• Recognition within the area of an urban local body

4. Compliance with the law

Building on farmland without permission can bring penalties and, in some states, criminal liability. Conversion keeps you within:

• Land revenue laws of the state
• Town and regional planning laws
• Rules that protect agricultural land

5. Fewer title disputes

Ownership of unconverted farmland is often limited in complicated ways, especially where land ceiling acts apply. Conversion settles ownership rights and cuts the chance of future litigation.

Persons entitled to apply for conversion

Rules differ by state, but these applicants are generally eligible:

1. The present owner

The person recorded as owner in revenue records such as 7/12, Pahani or Khatauni may apply.

2. A power of attorney holder

In some states someone holding a registered General Power of Attorney (GPA) may apply on the owner's behalf, as long as the GPA plainly grants that power.

3. Legal heirs

Where the owner has died, legal heirs may apply once the property has been mutated in their names, backed by succession papers under the Hindu Succession Act or the relevant personal law.

4. Government and institutions

Government departments, public sector undertakings and recognised institutions can apply for conversion for projects in the public interest.

Limits to keep in mind

• Non-agriculturists: Some states, Maharashtra and Karnataka among them, restrict non-agriculturists from buying farmland. After conversion to NA the restriction no longer applies.
• Agricultural land ceiling: Land above the ceiling under the state's ceiling act may see conversion refused or granted in part.
• Prohibited zones: Land in protected areas such as green belts, forest zones and coastal regulation zones may not qualify.

Land conversion, step by step

Details differ by state, yet the broad sequence is the same:

Step 1: Check the land records

Before you start, confirm the land's present classification in official revenue records:

• 7/12 extract in Maharashtra
• Pahani/ROR in Karnataka, Andhra Pradesh and Telangana
• Khatauni in UP and Bihar
• Patta/Chitta in Tamil Nadu

Make sure that:

• The land is recorded as agricultural
• You are the registered owner
• No encumbrance or mortgage exists
• The land does not fall in a prohibited category

Step 2: Get an NOC from the Revenue Department

Apply to the local Tahsildar or Revenue Officer for a No Objection Certificate (NOC) for conversion. You will normally need:

• The application, in the state's own format
• Proof of ownership, such as the sale deed or title deed
• The latest revenue records
• Survey number and plot particulars
• Intended use: residential, commercial or industrial

The Revenue Department checks that:

• No agricultural debt is outstanding on the land
• No revenue dues are pending
• No tenancy rights attach to the land
• No acquisition by the government is under way

Step 3: Apply for land use conversion permission

Submit a formal application to the competent authority, which depends on the state:

• In Maharashtra the application goes to the District Collector or the Sub-Divisional Officer
• In Karnataka it goes to the Deputy Commissioner (DC), or the Assistant Commissioner (AC)
• In Andhra Pradesh and Telangana, approach the Mandal Revenue Officer (MRO) or the Tahsildar
• Tamil Nadu: file before the Tahsildar or the District Collector
• UP applicants deal with the Zila Panchayat or the Nagar Palika
• In Rajasthan the Tehsildar or Sub-Divisional Officer decides
• In Haryana the Director of Town and Country Planning is the authority

Attach the following with the application:

• The application in the prescribed form
• Proof of ownership
• The Revenue NOC
• Site plan and survey map
• Details of the proposed use of land
• An irrigation department NOC if the land lies under canal irrigation
• Environmental clearance where a large project requires it

Step 4: Inspection of the site

Revenue officers visit the land to confirm that:

• Boundaries on the ground agree with the revenue records
• There is no encroachment
• The planned use fits the local development plan
• No land ceiling or farmland protection law is breached

They write an inspection report and send it to the sanctioning authority.

Step 5: Pay the conversion charges

After approval you get an order assessing the fees. Pay what is prescribed (see the state-wise section below). The amount usually covers:

• Conversion charges, set by land value and area
• A premium or penalty for the change of use
• Fees for administrative processing
• In certain states, stamp duty and registration fees

Payment is commonly made by:

• Online portals in digitised states
• Treasury challans
• Demand drafts in favour of the revenue department

Step 6: The conversion order is issued

With the fee paid and the checks finished, the competent authority gives you a formal Conversion Order, also known as an NA Order. It:

• Moves the land's classification from agricultural to non-agricultural
• States the permitted use, whether residential, commercial or industrial
• Becomes a part of the official revenue record
• Counts as a revenue and planning order, written into the record of rights (RTC / 7-12 / Pahani) through mutation, and never as a conveyance registered with the Sub-Registrar

Step 7: Mutate the records

Apply for mutation so that the revenue records (7/12, Pahani, Khatauni) show the NA status. This makes sure that:

• The RTC / 7-12 / Pahani record of rights displays non-agricultural classification (an encumbrance certificate never does, as it records only registered transactions and not land use)
• Property tax records are brought up to date
• Municipal records show the change

Step 8: Seek building plan approval

Holding the NA order, you may now:

• Apply to the municipal corporation or development authority for building plan sanction
• Obtain environmental and other statutory clearances
• Begin construction lawfully

Papers needed for conversion

Needs differ by state, but most applications call for these common documents:

Proof of ownership

• Original sale deed or title deed
• Documents showing the chain of title, for title chain verification
• Succession or legal heir certificate, for inherited land
• Registered Power of Attorney, where relevant

Revenue papers

• A recent 7/12 extract, or Pahani, ROR or Khatauni
• The Patta certificate, or Chitta
• Receipts for property tax, where they exist
• Revenue clearance certificate showing no dues

Survey and site papers

• Survey map or plot plan
• Location map of the site
• Demarcation report, if available
• Documents showing land boundaries

Clearances and NOCs

• NOC of the revenue department
• NOC of the irrigation department when the land is irrigated
• NOC of the agricultural department, in some states
• Environmental clearance for projects over a threshold area
• NOC of the gram panchayat or local body

Applicant identity papers

• Landowner's ID proof such as Aadhaar or PAN
• Address proof
• Passport-size photographs
• Affidavit giving the reason for conversion

Extra papers some states ask for

• Conversion application in the prescribed format
• Undertaking that no tenancy attaches to the land
• Declaration that there is no agricultural debt
• Income certificate, in some states

Tip: confirm the present list with the local revenue office or the state's official portal, because requirements change from time to time.

Conversion fees across states

Fees differ widely between states. They are mostly worked out from:

• Area, per acre or per square meter
• Location: urban or rural, and distance from the city
• Intended use: residential, commercial or industrial
• Current market value or guideline value
• The premium structure and rates of the state

A general picture of fees in the main states follows (2026 rates):

Maharashtra

• A premium equal to 25-50% of ready reckoner (market) value
• Where the use is commercial or industrial, the premium climbs to 50-100%
• Land inside municipal corporation limits is charged more
• Filing the application costs ₹500-₹2,000

Karnataka

• The fee runs at 25-40% of guidance value
• It rises in A-grade cities like Bangalore and Mysore
• Commercial use adds a further 50% premium
• Expect a processing charge of ₹1,000-₹5,000

Andhra Pradesh and Telangana

• Charges amount to 30-50% of market value
• Plots within the HMDA/VUDA/VMRDA development authority areas pay at higher rates
• Far-off agricultural zones get lower rates
• A processing charge of ₹500-₹2,000 also applies

Tamil Nadu

• Charges are 30-60% of guideline value
• The percentage moves in slabs with the distance from municipal limits
• For commercial land the figure is 75-100% of guideline value
• An application fee of ₹1,000-₹3,000 is payable

Uttar Pradesh

• Per sq. meter the fee is ₹10-50, depending on district
• Notified urban areas cost more
• Residential and commercial uses have different prices
• The processing fee is ₹500-₹1,500

Haryana

• 10-15% of the collector rate is charged
• Commercial use attracts a license fee each year
• In urban areas, external development charges (EDC/IDC) are added
• Applying costs ₹500-₹2,000

Rajasthan

• A premium of 25-50% on circle rate
• Residential use pays less and commercial use more
• Villages are cheaper than towns
• The processing fee is ₹1,000-₹3,000

Gujarat

• 20-40% of market value is the fee
• Inside AUDA/SUDA areas the development authority adds its own premiums
• GIDC and other industrial zones get special rates
• The application fee is ₹500-₹2,000

Points to note:

• State governments revise fees from time to time
• Registration, stamp duty and administrative charges may come on top
• Some categories (SC/ST, small plots, affordable housing) may get exemptions or concessions
• Large parcels can attract environmental impact assessment fees

Before you budget, check current fees with the local revenue authority or the official state portal.

How long conversion takes

Time taken depends on how efficient the state is, how complete your papers are and how complex the case is. Typical ranges:

Faster, digitised states

• Expect 30-90 days
• Examples are Karnataka (the DC e-Office portal falls under Sakala guarantees and carries 30-day deemed approval), Maharashtra (where the 2025 MLRC amendment largely ended the separate NA permission for land that the Development Plan already shows as NA) and Tamil Nadu
• Filing online cuts processing time
• Automated checks help fix the site inspection date sooner

Middle-of-the-road states

• The wait is 3-6 months
• This applies to Andhra Pradesh, Telangana, Gujarat and Haryana
• Physical movement of files in manual checking creates delay
• With several NOCs, every clearance takes a further 2-4 weeks

Slower, manual states

• Plan on 6-12 months or longer
• Uttar Pradesh, Bihar and some Rajasthan districts fall here
• Red tape means repeated visits to offices
• The site inspection alone may take 1-2 months to schedule
• Following a file is difficult in manual systems

What speeds things up

• Giving complete papers at the start
• A clean title free of disputes and encumbrances
• Land that lies within planned development zones
• Using online portals where they exist
• Help from a professional consultant

What slows things down

• Papers that are missing or incomplete
• Title disputes or pending litigation
• Agricultural debt or tenancy on the land
• Encroachments or boundary disputes
• Land in ecologically sensitive areas that need environmental clearance
• Objections raised by neighbors or the irrigation department
• A backlog at the revenue department

Tip: many states now run a 'single-window clearance' for conversion under ease of doing business drives. See whether your state has a fast track for conversion applications.

How conversion rules differ by state

Indian states have different land conversion laws that reflect local farm policy, pressure from urban growth and administrative habits. The main variations are these:

Maharashtra

• The District Collector or SDO holds the power, under the Maharashtra Land Revenue Code (MLRC)
• The biggest change of 2025-26 is the MLRC (Second Amendment) Act, 2025. Where a sanctioned Development Plan or Regional Plan already shows land as non-agricultural, the separate NA permission (Sanad) no longer exists. Conversion is folded into development or building-permission approval, and the revenue records change on their own. The Code lost Sections 42, 42A–42D, 44, 44A, 45, 46 and 47A.
• On fees, a single premium for NA use, linked to the Annual Statement of Rates (ready reckoner), has replaced the recurring NA assessment.
• One caution: use conversion becomes easier, but the land's tenure and occupancy conditions are not touched, so conditions on Class-II and granted land continue.

Karnataka

• Authority: the Deputy Commissioner (DC), acting under Section 95 of the Karnataka Land Revenue Act, hence the phrase 'DC conversion.' Filing is on the DC e-Office portal, which is tied to the Sakala framework of time-bound services, and not on the Bhoomi RTC portal.
• On the 2025-26 reform, the draft of the Karnataka Land Revenue Rules (Amendment), 2025 appeared on 17 September 2025 under Notification RD-LGP/6/2025. The deemed or automatic conversion scheme went into operation during 2026, so verify the present position before you depend on it. The rules take DC conversion entirely online and add deemed approval if the DC has not decided within 30 days. Such approval is merely provisional. The signed conversion order follows only on payment of the fee, and an unpaid fee can still mean rejection. Industries occupying up to 2 acres, and renewable-energy projects, are exempt from the formal conversion process, though they pay fees. Karnataka has also discarded its old jail term (up to 3 years + ₹10,000) for selling or using farmland for non-farm purposes without conversion. A flat fine of ₹1 lakh now applies (LA Bill 51 of 2025). Any penalty for misuse is noted in the revenue record (RTC), so a later buyer is bound by it.
• A layout is a separate matter from conversion. A plotted development has a DC conversion order and also a layout approval from BDA, BMRDA or the local planning authority. Ask for both papers.
• Fees are linked to guidance value and vary between urban and rural land. In addition, the Comprehensive Development Plan (CDP / Master Plan) must allow the plot to be converted.

Tamil Nadu

• The District Collector or Tahsildar acts under the Tamil Nadu Land Reforms Act
• Even a small residential plot in a village must be converted
• TNREGINET handles online applications
• Farmland in the delta regions is guarded by tighter conversion controls

Andhra Pradesh and Telangana

• In Telangana the route is NALA permission under the Telangana Non-Agricultural Lands Assessment Act, applied for to the RDO, or to HMDA/DTCP inside their areas. In Andhra Pradesh the application runs via the Tahsildar/RDO on IGRS AP (registration.ap.gov.in).
• Land in development authority areas (HMDA, VUDA, VMRDA) pays extra premiums.
• NALA tax in Telangana depends on the intended use (industrial, commercial or residential) and on the locality's population. A plot used purely for residence, up to 100 sq m, is exempt.
• A significant change arrived in 2025. The Bhu Bharati portal, set up under the Telangana Bhu Bharati (Record of Rights in Land) Act, 2024, replaced Dharani and now processes NALA conversions and record updates. After the NALA order, make sure the record of rights has truly changed to non-agricultural.

Uttar Pradesh

• Rural cases go to the Zila Panchayat and urban ones to the Nagar Palika
• Land already inside municipal limits may not need conversion in some urban areas
• Fees are fixed per sq. meter and depend on district and how far the land is from towns
• Manual working in many districts leads to delays

Haryana

• The decision-maker is the Director of Town and Country Planning
• A license fee, payable annually, applies to commercial conversions
• Fees follow the collector rate, with external development charges (EDC/IDC) on top in towns
• Green belts and farm zones close to Delhi NCR are tightly controlled

Rajasthan

• The Tehsildar or SDO decides under the Rajasthan Land Revenue Act
• Jaipur and Jodhpur city areas have different rates from rural districts
• The premium is computed from circle rates
• It takes 90-180 days, which depends on the district's efficiency

Gujarat

• The Mamlatdar or Talati acts under the Gujarat Land Revenue Code
• Converting industrial land can use fast-track provisions
• AnyROR is the portal for checking revenue records
• Fees are tied to market value, with premiums added in AUDA/SUDA areas

Punjab

• The Sub-Divisional Magistrate is the authority
• Farmland is strongly protected by law, and fertile zones see few conversions
• Fees are moderate, yet approvals are selective
• Farm lobbies object to conversion on a large scale

West Bengal

• The Block Land & Land Reforms Officer handles it
• Ceiling and tenancy laws complicate conversion
• Assessment is based on market value
• Manual processes stretch it to 6-12 months

Main lesson: read the local revenue department's rules and appoint a property consultant who knows your state's procedure. What applies in Maharashtra may not work in Karnataka or Uttar Pradesh.

Dangers of buying unconverted farmland

A purchase of agricultural land without proper conversion brings serious legal and financial risks:

1. No construction permits

Municipal authorities will turn down plan approvals for unconverted farmland. Any building you put up will be:

• Unauthorized: it breaks building bylaws and land use rules
• Liable to demolition: local authorities can order it to be pulled down
• Ineligible for services: no water, electricity or sewage connections

2. Home loans refused

Lenders almost always refuse housing or mortgage loans on unconverted agricultural land. As a result the property is:

• Illiquid: hard to sell because buyers cannot raise finance
• Cheaper: typically sells at a 30-50% discount to NA plots
• Cash-only: the number of buyers shrinks sharply

3. Limits on who may own it

State laws put restrictions on agricultural land:

• Bans on non-agriculturists: many states forbid or limit sales to non-agriculturists
• Land ceiling: limits on holdings may apply
• Tenancy rights: sitting tenant farmers may have legal claims
• Limits on transfer: some states require a revenue NOC to sell

4. More disputes and lawsuits

Unconverted farmland is more prone to:

• Ownership disputes: several claimants through inheritance or unclear succession
• Encroachment: boundaries of farmland are often vague
• Revenue dues: unpaid land revenue or farm debt can create encumbrances
• Fraudulent sales: farmland records may be kept less strictly than urban property records

5. Penalties and prosecution

Unauthorized building or use of farmland can lead to:

• Fines and other penalties arise from state land revenue acts and municipal laws
• Some states treat illegal conversion as a crime and prosecute
• Seizure of property: in extreme cases the government can seize farmland that was illegally developed

6. Loss of farming advantages

If you buy farmland planning to convert it and never do:

• No agricultural exemptions: for income tax or property tax
• Farm regulations apply: you must follow agricultural land use limits
• Narrow use: non-agricultural use is not legally open to you

7. Zoning and planning breaches

Converted land too must satisfy:

• Master plan zoning: use has to fit approved urban development plans
• RERA: developers must register their projects
• Environmental clearances: large projects need further approvals

8. Hard to verify

Farmland is harder to check for several reasons:

• Complicated revenue records: several documents (7/12, Pahani, Khatauni) must be matched
• Encumbrance checks: EC records for farmland may be incomplete
• Court searches: farmland disputes may sit in civil or in revenue courts

9. Costs you did not plan for

Set aside money for surprises while conversion is pending:

• Conversion fees: possibly 25-50% of land value
• Legal fees: for papers and the application
• Cost of delay: interest on blocked funds and lost opportunity
• Compliance costs: fixing defects in documents

A real-life illustration

Take a buyer who bought a 2000 sq. ft. plot in a growing part of Pune, sold as 'ready to build', and learnt afterwards that the land was still classified as agricultural. What followed:

• The municipal corporation turned down the building plan (₹50,000 paid to the architect was lost)
• The bank refused a home loan (cash had to come from family)
• Getting the land converted took 18 months and ₹8 lakhs, including fees and bribes
• The plot could not be sold while conversion was pending
• Overall loss: ₹12-15 lakhs through delayed construction, legal fees and lost market opportunity

Conclusion: check the land's classification before you buy, and plan for conversion costs if it is still agricultural. Better still, buy plots that are already converted to NA and avoid these risks altogether.

How LegiScore verifies land classification and conversion status

Land classification is a key part of property verification. The LegiScore platform uses AI to detect whether land is agricultural or non-agricultural, as part of the Legal Property Score (LPS) rating.

Items LegiScore checks

For every property rating you order, the system looks at:

1. Analysis of revenue records

• Pulls the classification of the land from official revenue records such as 7/12, Pahani, ROR and Khatauni
• Flags whether the land is marked 'agricultural' or 'NA'
• Spots any conversion application still pending

2. Checking the conversion order

• Confirms whether a valid conversion order has been issued
• Matches the order against the revenue record (RTC / mutation). A conversion order is a revenue and planning order and is never registered at the Sub-Registrar
• Confirms the date of the order and the authority that issued it

3. Cross-check with municipal records

• Verifies that the land falls under the jurisdiction of a municipal corporation or panchayat
• Checks property tax records, since NA lands are assessed to property tax
• Confirms the status of building plan approval, which is possible only for NA lands

4. Red flags in compliance

• Critical Alert: property still classified as agricultural even though construction exists
• High Risk: no conversion order, or one that the revenue record (RTC / mutation) does not yet reflect
• Medium Risk: the conversion is complete while mutation waits
• Compliance Issue: revenue records disagree with actual use of land

5. Zoning and master plan check

• Tests whether the converted use matches approved master plan zoning
• Flags violations, for example land converted to residential but lying in an industrial zone
• Verifies approvals from development authorities (HMDA, BDA, VUDA, etc.)

Effect on your LPS rating

Classification problems lower your LPS rating in several areas:

Compliance Score (AAA to C)

• AAA: land converted to NA correctly, all records updated, no violations
• AA: land converted with small documentation gaps (for example, mutation pending)
• A: order of conversion issued, mutation in the revenue record still pending
• B: land remains agricultural and a conversion application is in progress
• C: agricultural land with unauthorized construction and no conversion application

Revenue Records Score

• Tests whether classification and actual use agree
• Flags differences between revenue records and municipal records

Title Chain Impact

• Ownership limits on farmland may cloud the clarity of title
• A purchase by a non-agriculturist of unconverted land is flagged as a risk

Access to documents in real time

You receive from LegiScore:

• A copy of the revenue records with the current land classification
• The conversion order, where available
• Municipal records confirming NA status
• Expert comments explaining risks or compliance gaps

Why it matters

Many legal opinions and manual due diligence exercises miss land classification and look only at the title chain and encumbrances. LegiScore's AI makes sure this vital compliance check is not skipped.

Manual verification can take weeks and cost ₹15,000-50,000. LegiScore delivers a full report, including land classification verification, in 48-72 hours at a fraction of that cost.

Learn your property's legal health today: take your first LPS rating and see exactly where the property stands on land classification and conversion compliance.